HomeMy WebLinkAboutCity of Stilwater Comprehensive Plan 1979Prepared for::
The City Council and .Citizens of
The City of Stillwater, Was.hi--ngton County, Minnesota
Prepared by:
The Washington County P`lann ,.A'Z Depar:tm-'ea-t` ;arid
Desigri,,Pygrtning Associateeo,,; Inc.
Under the Direction of:.tb0:
Stil F4V'er;.Plan`aing Cimmission,
August, 1979
The Pre- paration of this Planning Repott'.wa ?; in part nt-ia'11y
aided'by a Planning Grant administered-.'b'q ,the Metxopo�, tan Council
as per provisions of the M'etr.opolitan L n "nd P;Iaaning Act: as req:iiired .
by Minnesota Statutes, Section•473.85.1.•et �eqi..f'.
Funding assistance . was also;.: p-t ovided , uAd "e'r a H-UV- 701 P1ann.img '.G-.rant
administered by the Office ,..af. Local and, 'Utb.an Aff.airs..bf the
Minnesota State Planning Agency. Al
STILLWATER PuMLIC LIBRARY
223 NORTH 4TH STREET
STILLWATER, MN 55082
PREFACE
_`,AO;u'riizg 1960 and 1961, a general plan for development of the
- S.ti1'14ater_area (including"'Stillwater Township) was prepared
and has served" as the-City's Comprehensive Municipal Plan to
this date. Minor updating and revisions were made during the
late 196,0'.s as.part of the Central Washington County Planning
Program and again in 1971 and 1972 when a new plan for the
Central Business District was prepared by the Housing and
Redevelopment Authority.
As per conditions and requirements of the Metropolitan Land
Planning Act, the existing Comprehensive Municipal Plan for
Stillwater has been evaluated by a Planning Consultant, the
Washington County Planning Department and the City Planning
Commission as to the need for possible updating and revisions
as required by State Statutes, changing trends and conditions,
and the needs and desires of the Community's citizens and
land owners.
This updated and revised (1979) planning report is designed
to better assist City officials in making the day -to -day
decisions required for proper long range maintenance and devel-
opment of the Community environment. The State Legislature
has found that communities are faced with mounting problems in
providing means of guiding future development of land so as to
insure a safer, more pleasant, and more economical environment.
Further, the Legislature's planning and development policy
states - "Municipal planning by providing public guides to
future municipal action, enables other public and private
agencies to plan their activities in harmony with the munici-
pality's plans. Municipal. planning will assist in developing
lands more wisely to serve citizens more effectively, will
make the provision of public services less costly, and will
achieve amore secure tax base." It is the purpose of the
Municipal Planning Act to provide municipalities with the
necessary powers and a uniform procedure for adequately
conducting and implementing municipal planning.
CREDITS
Special thanks are due the City Staff and various Department
Heads who assisted in the preparation of this Comprehensive
City Plan draft. The various elements of the Plan were discussed
and evaluated at least once each month during the past 16 months
at Planning Commission meetings attended by City Staff, the
Mayor and City Council members, the City Attorney, engineering
consultants, citizen groups and individuals, and others who
assisted in the Community Planning process. Credit is also
due the Joint Powers Planning Committee and its efforts to
plan for the proper and orderly development of the southwest
portion of the City and Township Area.
Of particularly significant, assistance, were the ci.ti,.dens who
responded to the Planning Survey .Questionnaire ,expre sing
their concerns, desires, and suggestions f.or�the'-fut.ure
environment of Stillwater.
I
G
TABLE OF CONTENTS
Page No.
Cover
Preface
Part I. INTRODUCTION . . . . . . . . . . . .
. 1
A. Historical Background . . . . .
. 3
B. Purpose . . . . . . . . . . . .
. 5
C. Scope . . . . . . . . . . . . .
. 6
Part II. LAND USE PLAN . . . . . . . . . . .
. 7
A. Inventory . . . . . . . . .
. 8
1. Population . . . . . . . . .
. 8
2. Employment . . . . . . . . .
14
3. Public Finance . . . . . . .
16
4. Housing . . . . . . . . . .
23
5. Physical Features . . . . .
40
6. Land Use . . . . . . . . . .
44
a) Community. . . . . . . .
46
b) Downtown . . . . . . . .
56
c) Historic Sites . . . . .
66
B. Policy Plan . . . . . . . . . .
68
1. Land Use . . . . . . . . . .
69
a) Goals . . . . . . . . .
70
b) Policy . . . . . . . . .
75
c) Standards . . . . . . .
83
d) Land Use Plan . . . . .
89
2. Protection Open Space . . .
103
3. Joint Powers Area . . . . .
106
4. Housing . . . . . . . . . .
129
5. Central Business District. .
140
6. Air Space Controls . . . . .
157
7. Historical Sites & Bldgs.. .
158
8. Solar Protection . . . . . .
162
Part III. FACILITIES PLAN . . . . . . . . . .
166
A. Inventory . . . . . . . . . . .
166
1. Transportation . . . . . . .
167
2. Recreation Open Space . . .
170
3. Utilities . . . . . . . . .
176
4. Community Facilities . . . .
179
B. Policy Plan . . . . . . . . . .
180
1. Transportation . . . . . . .
181
2. Waste Management . . . . . .
184
3. Parks, Open Space, Community
Facilities . . . . . . . . .
188
Part IV. IMPLEMENTATION PROGRAM . . . . . • •
191
Table of Contents (Cont.)
A. Inventory
B. Programs .
1. Official
2. Capital
3. Housing
Part V. ADOPTION - PLAN
APPENDIX
Page No.
. . . . . . . . . 191
. . . . . . . . . . . 191
Controls 191
Improvements . . . . . 191
. . . . . . . . . . . . 202
AND OFFICIAL CONTROLS. 202
A. Citizen Planning Questionnaire Survey Results
B. Maps and Graphics
PART I.
INTRODUCTION
Planning is a process or a way of thinking ahead about the
future of the community. This thought process must then be
translated into a plan of action by an orderly process. This
report is another step in that orderly process -- to collect
the necessary facts and information, determine their meaning,
importance and implications for the future and to present them
to community leaders and citizens so that realistic goals may
be established and plans formulated. The next step is the
formal adoption of the Comprehensive Plan by the governing body
and the adoption and implementation of those tools which make
the plan a workable reality.
If planning is merely a process or way of thinking, one may
ask, why plan? What will be accomplished by planning that
could not be accomplished without it? Why bother with controls
and regulations, standards and policies? Why not let each
individual decide what use he wishes to make of his property?
For the answer to these questions we must look to the ex-
periences of the past and prospects for the future.
Since the beginning of his communal life, man has sought ways
to make this life more pleasing and to solve the problems
created by the congregation of groups of people in small
areas. Our ancestors sought out certain sites to establish
villages, near rivers, lakes or on high ground. Walls were
put around the villages to provide protection from enemies,
places of worship and government were grouped together in the
central areas to provide ease of access and a focal point for
village life . . . all of this was planning. In America,
nearly every city was started when a land developer filed a
plat showing the proposed location of homes, streets and
commercial enterprises. This, too, was planning.
Today we are rapidly becoming a nation of urban dwellers, with
over two - thirds of our population living in urban areas. This
concentration of population, plus the natural increase has
placed an enormous strain on the ability of local governments
to provide the services and facilities such as schools, streets
and thoroughfares, parks and recreation facilities and utilities
necessary to make our communities livable. Thus, the process
of planning must be utilized to determine how a community will,
with limited resources, provide the services and facilities
required by its citizenry. Without planning such services
are offered on a hit -or -miss basis and are unrelated to any
long range program of orderly growth and development.
Just as freedom of speech does not include the right to "yell
out 'fire' in a crowded theatre" in jest, so too must practical
limitations by law be placed upon land use rights. Land is a
unique and limited resource which must be protected from
ever increasing demands on its use by, as yet, unlimited
population numbers.
1
Planning is far more than a negative set of controls and
limitations of individual's rights. It is, or should be, a
positive instrument to create a community that is..h.ighly
desirable, livable, economical, efficient and prosperous. If
used properly it may translate man's highest aspirations for
his environment into reality, enhancing the beauty of nature
and creating urban and rural beauty and usefulness.
2
A. HISTORICAL BACKGROUND
The City of Stillwater has a long history of formal City
Planning dating back to 1918 when a general plan for the
future development of the Community was first prepared.
This. Plan for Stillwater, along with those of Duluth and
Minneapolis were still part of the "City Beautiful" movement
which placed strong emphasis upon large formal parks,
parkways, monumental civic buildings (such as the existing
City Library), civic art objects such as statues, band
shells, formal gardens, and the like.
It is interesting to note that the 1918 Plan for Stillwater
contained many of the recommendations that are still being
made today; among these are better and expanded recreation
and other "park like" use of the St. Croix River shoreland
in the Downtown Area and a system of "lineal" parks and open
green spaces utilizing strong features of the natural
terrain such as the bluff line, ravines, rock outcroppings,
and drainage ways.
There is no evidence of formal City Planning in Stillwater
during the period between World War I and 1960 except for
various Public Works Projects of the depression era. This
is due, in part, to certain historical factors and growth
trends. Stillwater was-a booming and bustling "River Town"
with growth related to the loggia@ industry of the time with
a population of over 10,000 persons as late as 1910.
Following 1910, and the demise of the timber industry of
the area, the Community actually lost population and did
not reach 10,000 residents again until 1970.
Since 1970, Stillwater has experienced significant popu-
lation growth, and most recently, significant commercial
and industrial development. The Community is back into a
"growth" situation following many years of, first decline,
and then stability or only very slow and gradual growth and
development.
In recent years, the Community has experienced growth in
the form of a large residential subdivision, apartment
construction, the beginning of an industrial park, and
increased vehicular and pedestrian traffic in the Downtown
due, in part, to historical building renovation and other
private developments in the Central Business District.
This current planning process effort is due in part to the
rather recent growth situation, general citizen interest
in preservation of the historical and other aspects of a
"River Town" environment, and legal requirements of the
Metropolitan Land Planning Act.
The present planning program was started in August of 1978
and will be completed early in 1980; all Metropolitan Area
3
communities must submit new or updated Comprehensive
Municipal Plans on or before July 1, 1980 as per requirements
of State Statutes.
The current planning effort is being conducted by the
Stillwater Planning Commission with review and discussion
taking place at joint meetings with the City Council, City
staff, and others. Professional planning assistance is
being provided by a Planning Consultant and the Washington
County Planning Department. Financing of the work being
conducted is aided by grants from the Metropolitan Council
and the Minnesota State Planning Agency.
This planning report is essentially that portion of the total
planning program being financially aided by a HUD 701
Planning Grant administered by the Office of Local and
Urban Affairs of the Minnesota State Planning Agency.
Additional and more detailed work is yet to be completed
prior to July 1, 1980 on portions of the City Plan
(primarily Plan Implementation portion which includes the
Capital Improvement Program, new codes and ordinances,
implementation programs and policies, and other such
plan adoption and implementing elements).
Prior to adoption and implementation, the Stillwater City
Plan must be reviewed by the Metropolitan Council, adjacent
communities, the School District, residents of the Community,
and various other public agencies and groups. Public
hearings will also be conducted to obtain maximum citizen
input prior to any official adoption or implementation
measures by the Planning Commission or City Council.
4
B. PURPOSE
The purpose of this report is to serve as a recommended
up- dating and elaboration upon the current 1961 Comprehensive
Plan. "Because plans made without any reference to agreed
upon objectives may create an environment that the people
of the City of Stillwater do not want, an environment that
does not satisfy their needs and desires, the City Plan
is being updated to help stabilize the environment that the
people of the area do desire.
The Comprehensive Plan of the City of Stillwater is to
help maintain the character of the area in accordance with
the desires of the residents of the Community and necessary
ordinances will be established from time to time to help
maintain this plan.
An up- dating and elaboration of the City Plan is desirable
for a number of reasons including new legislative require-
ments, changing procedural requirements such as review by
the Metropolitan Council, and changing trends in planning
and development techniques. For all practical purposes,
Stillwater is now almost completely developed; it is an
appropriate time now to "refine" the City Plan as desired
for final completion of development and proper long -range
maintenance and financing of public improvements and
services. Thus, requirements of the Metropolitan Land Planning
Act are not the only purpose of this current plan updating.
Very little land remains vacant and suitable for residential
development within the present corporate limits of Still-
water; less than 40 building lots are available for homes
although substantial land is available and zoned for
necessary commercial and industrial growth. Another purpose
of this planning program is to suggest a long -range annex-
ation plan and policy in order to modify the City limits to
encompass land which may be utilized for residential and
other development in the future.
Among the various considerations, it must be determined
how large the Community desires to be in the future, into
what areas it may expand, and what type of environmental
character is to be developed and maintained. Stillwater is
designated as a "Free Standing Growth Center" by the
Metropolitan Development Guide as is the City of Forest
Lake in Washington County. In effect, this means that
Stillwater is not to be planned as a typical "bedroon"
suburban community within the Metropolitan Urban Service
Area (MUSA) but rather is to be planned and developed
as a more independent urban community similar to those
more distant from the Central Cities of Minneapolis and
St. Paul.
5
Stillwater is still part of the Twin Cities Metropolitan
Area, however, and subject to various regulations and
procedures designed to properly coordinate urban growth and
development for the entire Metropolitan region. As
11Free Standing Growth Center ", Stillwater's planning must
not be of a "typical" suburban nature but rather geared to
taking care of its own needs such as local employment,
tax base, and provision of local public facilities and
services.
While planning in Stillwater is not tied so closely to
outward expansion of urban services from the two central
Cities, it is part of the family of communities in the St.
Croix Valley. Stillwater must plan for use and expansion
of its urban services such as police protection and sani-
tary sewers as part of the local urban service area which
includes all or portions of Stillwater Township, Oak Park
Heights, Baytown, and Bayport. As such, planning coordi-
nation and cooperation is highly important to developing and
maintaining a satisfactory environment for the general
Stillwater and St. Croix Valley Area.
During the past 12 months, it has become apparent that
certain aspects of the existing environment do not meet
with approval of all concerned while certain other environ-
mental qualities (historical, open space, image, etc.)
are desired by many for preservation. It is also apparent
that a general. concensus has not yet been reached re-
garding the future desired environment for Stillwater.
A purpose of this report is to place in text and graphic
form a document which may be utilized as the basis for
discussion and, hopefully, a vehicle for attaining general
concensus in its existing or some modified form as a
statement describing the desired future environment of the
City of Stillwater and the ways and means to achieve the
agreed upon goals.
C. SCOPE
The scope of this planning report is limited to meeting
various legal, public procedural, and contractural require-
ments and agreements. Among others, these include:
1) Grant Agreement between the Minnesota State
Planning Agency and the City of Stillwater;
2) Grant Agreement between the Metropolitan Council
and the City of Stillwater;
3) Planning services Agreement between the City of
Stillwater and the Washington County Planning
Department and sub - contracted Planning Consultant
Services;
4) Applicable provisions of the Metropolitan Land
Planning Act;
0
5) The System Statement and Plan Content Guide-
lines for the City and Township of Stillwater
as prepared by the Metropolitan Council; and
6) Local Planning Assistance Planning Briefs as
prepared by the Metropolitan Council.
Also, the scope of the planning process effort has been
limited to expressed desires of concentration by local
public officials, civic groups, and individual citizen
desires expressed orally and via written comments (primarily
from results of a citizen planning survey questionnaire -
See Appendix to this report).
Detailed and in -depth studies have not been conducted in
certain elements areas such as economic base nor have plan
details been presented for certain areas. More in -depth
studies and detailed plans should, however, be developed
in the future as part of the on -going planning process
of the City of Stillwater.
An important element and factor for the future will be
that of keeping the long -range (5 -year) Capital Improvement
Program and Budget (now required by State Statutes) up -to-
date and outlining in a more precise fashion the various
planned and budgeted public improvements and services of
the City. The requirement of listing planned public
improvements for at least five years into the future will
require more detailed planning and setting of fiscal
priorities in contrast to the more limited fiscal budgeting
requirements, practices, and procedures of the past.
More complete and detailed planning will be required in
the future for such elements as the Downtown, park and
playground acquisitions and improvements, utility extensions,
development of lineal trail and green space systems, traffic
improvements, and the like; all such planning will be more
closely tied to immediate future (fiscal year) and projected
(5 -year) future capital expenditures.
In addition to meeting various legal and other formal
requirements, the scope of this planning report is aimed
at suggesting a basis for gaining a concensus on the
locally desired environmental qualities to be both developed
and maintained for future generations in the Stillwater
area. Detailed and in -depth planning is of limited value
without public and private concensus as to environmental
goals and policy.
PART II.
LAND USE PLAN
The proposed Land Use Plan for Stillwater is based upon many
factors including various plans for the Area dating back to
1918. In addition to the 1960 -61 Stillwater Area Plan, various
other plans and studies have been reviewed and updated as
necessary in the light of changing trends and conditions;
7
these include but are not limited to. the. following:
a) Central Washington County Area Plan (mid 19601s).
b) Washington County Plan (as amended to date).
c) Central Business District Plan (1973).
d) Highway 212/36 Corridor Plan (Joint Powers
Planning Committee, 1978).
e) Metropolitan Development Guide Chapters as
Applicable.
f) Miscellaneous plans and studies by the City
Engineers, DNR, RTR, University students, Federal
Government (St. Croix River), Washington County
Planning Department, and others.
Prior plans and studies have been utilized in conjunction with
and study and analysis of existing trends and conditions plus
stated desires and recommendations from public officials and
individual citizens via a planning survey questionnaire (See
Appendix to this Report).
A. INVENTORY
General background information contributes to the thorough
knowledge and understanding of the Community which is
important in any attempt to plan for the future. An in-
ventory and analysis of the past, existing, and potential
future development trends is essential to the formulation
of reasonable and logical community plans. The start of
sound planning is a good knowledge of existing conditions
and the forces which are affecting change and development
in the Community.
The scope of this planning report is limited to subject
matter and detail necessary for the development of a general,
long -range comprehensive plan for Stillwater. An attempt
has been made to include material and detail sufficient
to help answer the question, "What kind of community do
we want ?" Every effort has been made to exclude that which
would be of only limited value in helping to answer this
questions and developing a plan and implementation program
based upon the answer.
1. POPULATION (Inventory)
Each person in Stillwater has an investment in the
future. This investment includes homes, property,
employment, a business, and time and effort toward
providing suitable living conditions. The current
planning program is designed to help protect this
investment and to guide future development along lines
that will help assure a sound future living environment.
The population, employment, and housing need forecasts
for Stillwater reflect basic assumptions and policies
about regional growth contained in the Development
W
Framework chapter of the Metropolitan Development Guide.
Estimates of future population by responsible public
agencies have been utilized and augmented and modified
as appropriate based upon local study and analysis.
The population of Stillwater decreased steadily from
1910 to 1940 when the downward trend was reversed; it
was not until 1970, however, that the local population
again attained the numbers present at the turn of the
Century in the "boom" days of the local logging industry.
It is important to note that the City had a relatively
stable population with little or no economic growth for
a period of nearly 60 years (1910 -70). While limited
and gradual economic and population growth occurred
after 1940, it has been only in the past five to ten
years that "growth" has approached anything of the nature
that could be described as "substantial ".
The Croixwood housing development (large single family
subdivision) Downtown building and renovation accom-
panied by increased business and pedestrian volume,
industrial park development, an area shopping center,
increased traffic and parking problems, and other
growth factors are relatively new to Stillwater.
Population growth and other development has resulted in
a new and sharper awareness of the Community environment;
this awareness includes concern over the quality and
rate of new development, the ultimate size of the
Community, the need for historical and other environ-
mental preservation needs, and the like. Stillwater
now joins Cottage Grove, Woodbury, and other growing
communities in being concerned with, and planning for,
its future environment based upon "growth" needs and
factors in contrast to the relative "stability" of
the past 30 to 60 years.
4
STILLWATER AREA
FREE STANDING GROWTH CENTER
Metropolitan Council Development Framework Population Trends /Forecasts
COMMUNITY
Stillwater (City)
Stillwater (Town)
Oak Park Heights
Bayport
Baytown
TOTAL
POPULATION BY YEAR
NOTE: Above data is for area within existing (1979) Community boundaries.
CITY OF STILLWATER PROJECTIONS
1970 1980 1990 2000
Employment 3,100 4,000 5,000 5,500
Households 3,035 4,300 4,800 59100
April
1970
1979
1980
1990
2000
10,196
13,480
13,100
13,500
13,900
990
1,430
1,400
1,900
3,600
1,257
2,130
2,600
3,600
3,900
2,987
2,890
3,000
2,900
2,900
723
880
900
1,200
1,300
16,153
20,810
21,000
23,100
25,600
NOTE: Above data is for area within existing (1979) Community boundaries.
CITY OF STILLWATER PROJECTIONS
1970 1980 1990 2000
Employment 3,100 4,000 5,000 5,500
Households 3,035 4,300 4,800 59100
CITY
OF STILLWATER AND AREA
POPULATION TRENDS AND PROJECTIONS
City
Township
Bayport
Oak Park Heights
County
1910
10,198
- --
- --
- --
- --
1940
7,013
---
- --
- --
- --
1950
7,674
- --
- --
- --
34,544
1960
8,300
- --
- --
- --
51,693
1970
10,196
1,014
2,987
11,238
83,003
1979
13,480
1,430
2,890
2,130
112,710
2000
13,900
3,600
2,900
3,900
189,510
It is important to note that prior forecasts of growth
by the Metropolitan Council for the Stillwater Area
and Washington County as- well -as the entire Metro-
politan Area have been revised substantially downward
in recent years. This slower rate of growth is based
upon a number of changing factors such as the economy,
migration to warmer climates, smaller family size,
and others.
The projections indicate an increase of approximately.
420 persons in Stillwater by the year 2000 as compared
to an increase of about 2,170 in adjacent Stillwater
Township. It is noted, however, that even this modest
population increase for the City of Stillwater may
not be possible since vacant and buildable residential
land within the City may accomodate only about 140
additional residents unless added numbers are accomo-
dated by an increase in multiple family (apartment)
construction and conversions of existing residential
structures from single to multiple dwellings to offset
the limited supply of available single - family home
lots and shrinking family size (number of persons
per occupied dwelling unit).
For this and other reasons, it is suggested that the
City consider annexation of additional vacant land
primarily to accomodate projected population growth
needs and the need to plan for the provision of
urban services to the expanded population.
It is suggested that such an expansion of the corporate
limits would be consistent with Metropolitan Devel-
opment Policy; otherwise, the projected additional
2,170 residents of Stillwater Township are to be
housed in a "rural service district" without sanitary
sewer and other urban services which can be provided
by the City of Stillwater. It is further assumed that
all or portions of the City of Oak Park Heights will
eventually be considered an "urban service district"
as part of the total St. Croix Valley Community and
similarly plan for accomodating a certain portion of
projected area population growth.
If annexation is not considered by the City of Stillwater,
the maximum ultimate population of the Community will
"level off" at approximately 13,900 persons probably
sometime prior to the year 2000. If this occurs,
population growth demand must then be accomodated by
the adjacent and nearby Townships in the rural service
district and Stillwater will, again, enter a period of
population stability and perhaps even slow and gradual
decline.
12
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1970 POPULATION BY AGE *'
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Since 1930, approximately 10 to 11% of Stillwater's
population has been 65 years of age or older. While
detailed population statistics of value will not be
available until after the 1980 Census, it is not
likely that new housing construction in the Croixwood
area has significantly affected this proportion of
elderly residents and, most likely, the percentage and
total numbers of persons 65 years of age or older will
continue to increase gradually over the coming years.
Unlike certain fast growing "suburban" communities,
planning in Stillwater must be geared to meeting
employment, leisure time, housing, and other needs of
an aging population with as much emphasis upon needs
of the old as well as the very young. For example,
senior citizen recreation needs are and will be just
as important as the needs for persons under 18 years
of age.
Being a "free standing growth center ", the provision
of local employment and a solid tax base for the
resident population may assume more importance than
in certain "commutor" suburbs which, by design or
otherwise, must consider employment opportunities
and travel patterns of adjacent communities and the
two Central Cities.
Due to its location, planning designation (free standing
growth center), and other factors - the City of Still -
water is a central or focal point for urban activity
with planning and development needs and problems more
similar to those of the two Central Cities.,
The needs, desires, and aspirations of the resident
population are rather clearly outlined as a result of
the Citizen Planning Survey Questionnaire contained
in the Appendix to this planning report. To a very
large extent, the expressed needs and desires of the
Stillwater population differ from those of a "typical"
suburban community and this is so reflected in the City
Plan proposals contained herein.
2. EMPLOYMENT
As noted in prior planning reports for the City of
Stillwater, local employment lagged behind that of
Washington County as a whole for many years. Since
1970, however, the local employment situation has
improved greatly with more recent developments in the
Downtown and Industrial Park giving promise of continued
improvement in local employment opportunitites.
As in the past and since about 1910, local employment
has been of a two part character. First, local jobs
in the Stillwater area have attracted persons who do
not reside in the area; this includes persons from
14
neighboring Wisconsin. Secondly, local employment
opportunities have also been such that some residents
have commuted into the Central Cities for work
opportunities. Thus, a somewhat unique situation has
resulted with peak "rush hour" traffic in all directions
rather than primarily one direction in the morning and
the opposite direction in the evening.
This planning report suggests that a planning policy
of the Stillwater area should be that of providing
local employment opportunities to the maximum number
of local residents that is practicable and feasible.
As a "free standing growth center ", the objective
should be to minimize the need for commutor traffic,
especially those who must travel back into the Central
Cities area each day for work.
Such a development policy would have many obvious
advantages including energy savings, decrease in
traffic problems, greater strength in the tax base
and local economy, and others. If these public
advantages are to be fully enjoyed, it is essential
that the industrial park be protected from intrusion
by residential development, the Downtown continue to
prosper, and other business and industry be encouraged
within the Stillwater area.
Employment projections by the Metropolitan Council are
as follows and indicate a projected increase of about
1,500 persons by the year 2000. This projection
may be somewhat conservative; proper and expected
development of the Downtown, the Industrial Park, and
other employment areas may well accomodate more than
the currently projected local employment.
CITY OF STILLWATER PROJECTIONS*
1970 1980 1990 2000
Employment 3100 4000 5000 5500
Households 3035 4300 4800 5100
*Source: Metropolitan Council
15
Based upon the preliminary City Plan for Oak Park
Heights, current plans by the City of Stillwater,
and other plans and known trends including the Joint
Powers Area and Stillwater Township, the great bulk
of future employment will be located in two general
areas:
1) Downtown Stillwater. Provided renovation
and other competitive efforts are sustained,
the full economic potential of the Downtown
is yet to be realized; substantial new em-
ployment of various types can be expected in
the future.
2) That general area designated as the Highway
212/36 "Corridor "; this includes an area
along and either side of Highway 212/36
from the St. Croix River westward to
County Road 15 (Manning Avenue). This
includes the Joint Powers Area and portions
of the City of Oakdale and Baytown Township.
Traffic and other planning studies have been conducted
by all concerned in these general employment areas.
Many of the traffic and other environmental problems
created by inappropriate planning.in the past are now
being corrected by all affected communities.
Major new commercial or other employment centers are
not planned nor anticipated for other areas in or near
Stillwater. For example, neither the Township nor the
City Plans as they now exist indicate substantial
commercial development potential along Highway No.
96 nor other areas which may be available in the
future. Major employment c- enters as currently planned
by the various area communities should be quite adequate
to meet the desired economic goals of the general
urbanized area.
Of major concern should be the protection of the
Stillwater Industrial Park and nearby areas for
commercial /industrial development in the future.
By their very nature, industrial areas are somewhat
slow to develop being dependent upon various
economic growth factors such as residential devel-
opment. To utilize planned commercial and industrial
area for current housing construction demands would
deprive the area of needed future employment opportunities
and present very serious economic consequences including
the public ability to pay for residentially generated
demand for increased public facilities and services.
3. PUBLIC FINANCE
To a very large degree, the health of the public
economy is dependent upon the state of the local private
economy. For many years now, the City of Stillwater
16
has not enjoyed the benefits of a strong tax base;
in the past, the City has simply not been able to
afford full implementation of some prior City
Planning proposals.
At present, the tax base of the Community is still not
as strong as needed despite revenue sharing and other
changes in the tax structure. The reasons are
historical in nature; a very long period of population
decline followed by only moderate growth has left the
City with an inadequate assessed property valuation.
Only in recent years has new construction and building
renovation given promise of a change for the better.
A long period of housing deterioration, lack of new
construction, an aging population, a Downtown faced
with new competition, and many other factors have
combined to place the City in a less than desirable
financial situation.
Only in recent years has there been indications of a
potential change in the public financial condition.
New construction and building renovation now taking
place with promise for more in the near future are
good indications. It has become clear that new
residential construction must be accompanied by new
commercial and industrial development; average new
residential construction, at best, merely pays its
own way.
An evaluation of City finances also indicate that
lower cost housing must be properly staged; too rapid
construction outpaces the City's ability to adequately
provide for the expansion of public facilities and
services. Further, a proper mix or variety of housing
types and costs is preferable along with maintaining
the value of the existing housing supply.
As indicated by the public finance data provided herein,
a limited property valuation for taxing purposes is
only one problem in financing local government. Large
expenditures required for the City Library, dutch elm
disease control, flood control, retirement of bonded
debt, and other budget factors limit the funds available
for new and improved public facilities and services.
Recent improvements in the taxable valuation and new
sources of income such as revenue sharing and fiscal
disparities give promise of a brighter future. It is
suggested that if the Land Use Plan proposals are
implemented, the economic future of Stillwater is
bright and the Community is entering a period of
prosperity not seen since the demise of the lumbering
industry in 1914.
17
Correct and diligent use of the Capital Improvement
Program and Budgeting process will also assist the
Community properly planning for and providing needed
public facilities and services. Critical factors
include preservation of the Downtown area and proper
development of the Industrial Park Area along with
preservation of the housing stock in sound condition.
18
CITY OF 5 fILBIATER P11fJ;JE50TA
TAXABI F. VALUATIONS, TAX IFVIr; AND MIL RATES
(CENTS OMITTED)
TAXABLE VALUATIONS:
Real Property
Personal Property
Total
Fiscal Disparities:
Contribution
Distribution
Total Taxable Valuations
TAX LEVIES EXTENDED BY COUNTY AUDITOR:
Extended in Year
Collectible in Year
General Fund
Special Revenut2 Funds:
Civil Defense
Public Employees' Retirement
Library
Park
Lily L -ke Park Revenue
Dutch Elm Control
Flood Control
Band
Solid Waste Collection
Permanent Improvement
Bonds and Interest
1978
$33,497,663
1,238,489
$34,736,152
(307,122)
2,071 `89
$36,500.219
1978
1979
1977
$32,548,036
1,226,377
$33,774,413
(232,129)
1,508,601
X50.885
1977
1978
Tota 1 s S 1 . 1 3618x7. 3-L A5. 45_ 1 .992 32.45
19
MIL
MIL
AMOUNT
RATE
AMOUNT
RATE
S 529 5
14.70
$ 542 , 3 53
15.88
2,500
.07
1,000
.03
65,000
1.81
75,000
2.20
90,000
2.50
85,000
2.49
15,000
.42
14,000
.41
17,500
.49
15,000
.44
54,000
1.50
10,000
.30
5,000
.14
5,000
.15
1,000
.03
45,000
1.25
42,000
1.23
5,000
.14
5,000
.15
307,414
8.40
317,639
9.17
Tota 1 s S 1 . 1 3618x7. 3-L A5. 45_ 1 .992 32.45
19
7-
CITY OF STILLWATER, MINNESOTA
TAXABLE VALUATIONS, TAX LEVIES AND MILL RATES
The taxable valuations include urban, rural and annexed areas. Urban and annexed
areas are taxed at a different mill rate than the urban areas. The mill rates in
the above financial statements are for urban areas only.
20
1976
1975
TAXABLE VALUATIONS:
Real Property
$31,561,219
$26,865,784
Personal Property
] 111 458
1,077,581
Total
$32,672,677
$27,943,365
Fiscal Desperities:
Contribution
(68,061 )
-0-
Distribution
1,257, 839
2,
1,333,035
200
Total Taxable Valuations
X33. 55
TAX LEVIES EXTENDED BY COUNTY AUDITOR:
Extended in Year
1976
1975
Collectible in Year
1977
1976
MILL
MILL
AMOUNT RATE
AMOUNT RATE
General Fund
$456,645-00 13.72
$30-0,784.00 12.35
Special Revenue Funds:
Civil Defense Fund
2,000.00 .07
900.00 .04
Public Employees' Retirement Fund
63,000,00 1.90
72,100.00 2.47
Library Fund
70,000.00 2.11
70,000.00 2.40
Park Fund
14,000.00 .43
14,000.00 .48
Lily Lake Park Revenue Fund
15,000.00 .46
15,000.00 ,52
Dutch Elm Control Fund
7,500.00 .23
7,500.00 .26
Flood Control Fund
-0- -0-
10,000.00 .35
Solid Waste Collection Fund
42,000.00 1.27
42,000.00 1.44
Sewer Revenue Fund
3,500.00 .11
-0- -0-
Permanent Improvement Fund
7,000.00 .21
7,000.00 .24
Firemen's Relief Fund
700.00 .03
700.00 .03
Bonds and Interest
176,413.00 5.26
76,621.00 2.66
Total
X857.758.00 25,80
$676.605.00 224
The taxable valuations include urban, rural and annexed areas. Urban and annexed
areas are taxed at a different mill rate than the urban areas. The mill rates in
the above financial statements are for urban areas only.
20
CITY OF STILLWATER, MINNESOTA
TAXABLE VALUATIONS, TAX LEVIES AND MILL RATES
TAXABLE VALUATIONS:
Real Property
Personal Property
Total
Tax Levies Extended by County Auditor:
Extended in Year
Collectible in Year
Gene. ra 1 Fund
Special Revenue Funds:
Band Fund '
Civil Defense Fund
Public Employees' Retirement Fund
Housing and Redevelopment Fund
Library Fund
Park Fund
Lily Lane Park Revenue Fund
Dutch Elm Control Fund
Flood Control Fund
Solid Waste Collection Fund
Permanent Improvement Fund
F;remen's Relief Fund
Bonds and Interest
Total
21
AMOUNT
$428,752.57
992.14
47,115.67
57,034.75
14,134.81
9,175.27
7,687.26
1,735.95
35,212:68
9,175.27
744.20
76,731.31
1974
$22,797,170
1,062,881"
$23,860.051
1974
1975
MI LL
RATE
19.02
.05
2.09
2.53
.63
.41
.34
.03
1.56.
.41
. 04
6.18
3
CITY OF STILLWATER
EXPENDITURES BY TYPE, 1975 and 1979
FUND 1975
General Fund
$
Mayor and Council
11,083
Elections
-
Planning
269
Adm. & Finance
76,283
Plant Operation
46,043
Police
192,135
Fire
132,879
Animal Control
347
Public Works
375,037
Protective Inspection
21,799
Signs & Lighting
50,028
Unallocated
99,700
Emergency Services
-
Total General Fund 1,005,598
Special Revenue Fund
Band
350
Civil Defense
2,119
Public Employees Retirement
54,360
Housing & Redevelopment
6,524
Library
80,477
Parks
159,697
Lily Lake Rec. Area
68,131
Tree Disease Control
11,697
Flood Control
29,189
Library Trust
4,726
State Aid Police
140,010
Total Special Revenue Fund 431,280
Debt Service Funds
Principal 105,000
Interest 86,065
Paying Agent 248
Total Debt Service 191,313
1979
10,800
725
129,335
71,360
310,200
192,781
3,400
244,576
29,670
63,600
238,450
13,200
1,308,097
2,989
1,655
79,000
101,098
94,943
83,700
130,000
17,216
7,560
518,161
120,000
64,797
219
185,016
Enterprise Funds
Sanitary Sewer
191,551
351,600
Solid Waste
150,246
215,600
Parking System
19,301
14,900
Waterworks
177,036
251,598
Total Enterprise Funds
538,134
833,698
Trust and Agency Funds -
Firemen's Relief
21,761
16,266
TOTAL ALL FUNDS
22
2,188,086 2,861.238
4. HOUSING ANALYSIS
Housing is one of the major elements of a community's
physical development; the residential areas of most
communities represent large proportions of the total
developed land, usually ranging from 30 to 50 per cent
of the community's developed land area. Residential
areas, besides their significance in size alone, have
importance as the immediate personal environment of
much of the community's population, as major consumers
of government services as well as sources of public
revenue. A final important characteristic of the
housing development of a community is that it can be
directly regulated through community legislation, such
as zoning ordinances, subdivision regulations, building,
and housing codes. Housing is also subject to the
exercise of urban renewal processes by the community
government, if it is blighted or in substandard
condition. Due to these characteristics of housing,
it is singled out as a major component of land use for
analysis and projection.
As is the case in most communities, housing occupies
a larger amount of land than any other use in the
City. This amount in Stillwater is 1,259 acres followed
by streets and highways with 765 acres.
Analysis of the housing development of a community
provides information which, in conjuction with popu-
lation and economic material, enables a community to
prepare for future housing needs. The expected amount
of new housing, the amount of land to be developed for
residential use, the types of housing to be built,
e.g. single family, duplex, or multiple - family, and the
expected home values will influence the future needs
of the community for streets, sewer and water services,
and for other public utilites. The location of other
community facilities such as parks, schools, libraries,
etc., will also be influenced by housing development
patterns. The present, as well as the future, urban
redevelopment and other service needs of communities
can be determined by analysis of housing condition,
occupancy, and valuation.
The basis for the determination of the expected amount,
type and distribution of future housing is a study of
the trends in housing construction, lot sizes, location
and home values as well as study of the factors
influencing these trends. The importance to the
community of these estimated housing needs and demands
cannot be over emphasized. Housing is one of the
23
basic personal needs of every individual in the
community and our society generally has accepted the
responsibility of seeing that this need is met by the
provision of safe and decent housing. Many communities
may already be falling behind in meeting this need
as the existing housing supply ages without replacement
or is lacking in adequate facilities without means to
require their provision. Others must anticipate
increasing shortage of adequate housing as the demand
grows due to population increases and changing needs
and due to lack of proper housing maintenance and
repair.
The housing situation has changed dramatically in
just the past five years. Some significant changes
are as follows:
a) The cost of housing has increased. Housing has
now been priced out of reach for many income and
age groups. Due to the shortage of available
housing units in Stillwater for moderate and low
income groups, various projects for rent sub -
sidized housing have been proposed by developers
in recent months.
b) Shortage of rental units. Market conditions which
are apparently not favorable to construction
of new rental units (non- subsidized), conversion
of existing rental units into condominiums, and
other factors have resulted in a near zero
vacancy rate throughout the Metropolitan Area.
Observation indicates that only a few dilapidated
dwelling units in Stillwater are vacant at the
present time.
c) Change in occupancy needs. Due to the rising cost
of new housing, more and more people are forced to
consider rental units who would, a few years ago,
be purchasing rather than renting. The growing
number of elderly, young, and other single persons
is creating a demand for more non - family type
rental units in all price ranges.
d) New interest in rehabilitation of older homes. In
Stillwater and other areas, there is a growing
interest in the purchase of older homes for historic
preservation and restoration, improvement for
rental or re -sale, and renovation for permanent
living quarters.
e) Shortage of land. It is estimated that less than
40 lots remain available and suitable for housing
development in the City of Stillwater. One result has
been recent requests to utilize land zoned for business
and industry for new housing.
24
Another factor still affecting the housing situation
in Stillwater is the number of "substandard" dwelling
units. In 1970, approximately 10% of all dwelling
units or about 300 dwelling units were considered
as "substandard" (i.e. unfit for human habitation);
at that time, nearly 67% of all dwelling units were
constructed prior to 1910 resulting in more than
one -half the total housing supply being over 60 years
old.
While a substantial number of new dwelling units have
been constructed since 1970, only moderate progress
has been made in the rehabilitation of existing, sub-
standard older homes.
During 1978, a "windshield" (exterior) visual survey
conducted by the Washington County Planning Department
and the Stillwater Building Inspector resulted in
the following:
HOUSING (Building) CONDITIONS, 1978
.(See Map Graphic for Location)
General Number In Need of Number In Need of
Location Minor Repairs* Manor Repairs*
Residential
Neighborhoods 145 1
CBD Insert Area 10 4
Total 155 5
*Due to the evaluation criteria utilized, this
category actually includes seriously deficient
(substandard) buildings; the term "minor repairs"
means that the building can still be rehabili-
tated; it is not so dilapidated as to call for
demolition.
* *The term "major repairs" indicates that there
is doubt that it would be economically or
otherwise feasible and practicable to restore
the home - (building) to a standard (livable)
condition.
It is estimated that the above data translates into
about 192 dwelling units in the residential neighbor-
hoods and about 21 units for a total of approximately
213 dwelling units in the entire City in need of sub-
stantial repair. Considering the probably interior
conditions and overcrowding, it is reasonable to assume
that at least 200 dwelling units in the City may be
rated as substandard by the 1980 Census of Housing.
25
It is noted that substandard housing conditions are
not concentrated but rather scattered about all parts
of the Community in the older neighborhoods (entire
area east of Center Street and north of Orleans
Street). Similar housing problems are noted in the
preliminary City Plan for Oak Park Heights in areas
adjacent to Stillwater.
In addition to adding further to the problem of a
housing shortage, dilapidated housing conditions
also present the following problems for Stillwater:
a) Scattered substandard housing can result in
lack of confidence by investors; if there is a
question as to whether a neighborhood is im-
proving or declining, more than natural
caution may be exercised in remodeling and
rehabilitation investments in older homes.
This situation creates a conflict and
problem for those desiring historical pre-
servation and restoration; there must be
confidence in the market if substantial
investments are to be expected for historic
and /or general housing rehabilitation.
b) The continued presence of substandard
housing can result in still further
deterioration if owners are reluctant
or unable (for various reasons) to make
the proper and necessary repairs.
c) An erosion in the quality of housing can
only result in a corresponding erosion of the
tax base.
d) Housing deterioration can lead to population
migrations resulting in substantial increases
in per capita public costs for social services.
e) The community "image" can suffer; there may
be a very fine line of distinction between
housing that is considered by some to be
"quaint and of historical value" and that
which is considered by others to be in a
dilapidated and unsightly condition.
Another potential problem in Stillwater is the possi-
bility of an increase in the number of conversions;
these are larger, older homes which may be converted
from one or two family to three or more dwelling units.
Among others, there can be problems of traffic, on-
street parking congestion, shortage of nearby re-
creational space, and the like, all related to popu-
lation density.
In the provision of moderate and low income housing,
Stillwater must be considered a leader among Washington
County communities. In addition to the substantial
number of older homes, the City has a Housing and
26
Redevelopment Authority and has participated in various
subsidized housing development projects:
Housing Program
FHA Rental Subsidized
Housing
FHA Home Ownership Sub-
sidized Housing
Section Eight (New
Construction)
Section Eight Existing
Units Under Contract
Total Subsidized Units
(126 family)
(121 elderly)
Number of Dwelling Units
51 (family)
4
40 (family)
96 (elderly)
31 (family)
25 (elderly)
247
In addition to the above, more than 60 units of sub-
sidized housing are currently proposed for development.
Housing data indicates that Stillwater is at or very
near its "fair share" of low and moderate income
housing units both in total numbers and in variety of
types. In any event, the shortage of available land
for new housing of any type presents a problem of
providing for population growth in areas to be provided
the full range of urban services in this "free standing
growth area" City.
27
METROPOLITAN
COUNCIL
1978
Household
Allocations to
Minor
Civil
Divisions
1970
1980
1990
2000
Bayport
667
720
780
830
Baytorn Twp.
183
270
370
450
Oakdale
1829
4200
7500
10500
Stillwater
3035
4300
4800
5100
Stillwater
Twp. 247
450
600
1200
27
TRENDS IN
ESTIMATED NUMBER OF HOUSING UNITS
1979
4,250a
1970 -1977 data adjusted to April -1, 1977 geographic boundries.
a 3,968 Occupied Units and 130 Vacant Units
Note: Net increas of approximately 1,583 dwelling units in Stillwater
since 1960 is partially due to annexation but mostly due to
new construction; the major portion of new units are single
family homes constructed in the Croixwood addition.
28
Revised
Census
Census
WASHINGTON
April 1,
April 1,
January 1,
COUNTY
1960
1970
1977
Afton
360
548
709
Bayport
577
669
704
Baytown Twp.
136
188
238
Birchwood
212
254
319
Cottage Grove
1,245
2,879
4,424
Dellwood
143
175
244
Denmark Twp.
255
264
350
Forest Lake
939
1,117
1,760
Forest Lake Twp.
943
1,096
1,638
Grant Twp.
253
450
700
Grey Cloud Twp.
91
99
117
Hastings (pt.)
-
2
2
Hugo
373
655
1,008
Lake Elmo
695
938
1,602
Lakeland
215
290
481
Lake St. Croix Beach
309
365
417
Lakeland Shores
24
31
59
Landfall
141
261
332
Mahtomedi
1,031
1,063
1,125
Marine on St. Croix
204
277
248
May Twp.
447
526
708
Newport
653
873
1,141
New Scandia Twp.
495
652
936
Oakdale
1,213
2,007
3,719
Oak Park Heights
268
377
778
Pine Springs
38
40
44
St. Mary's Point
117
116
126
St. Paul Park
809
1,414
1,473
Stillwater
2,667
3,115
4,098
Stillwater Twp.
206
256
375
West Lakeland Twp.
120
182
330
White Bear Lake (pt.)
-
8
8
Willernie
171
187
199
Woodbury
761
1,441
2,717
County Total
16,111
22,765
33,129
Metro Area Total
475,505
594,029
705,669
1979
4,250a
1970 -1977 data adjusted to April -1, 1977 geographic boundries.
a 3,968 Occupied Units and 130 Vacant Units
Note: Net increas of approximately 1,583 dwelling units in Stillwater
since 1960 is partially due to annexation but mostly due to
new construction; the major portion of new units are single
family homes constructed in the Croixwood addition.
28
N
kD
HOUSING CONDITIONS, 1970
Oak Park
HOUSING:
Heights
Stillwater
1.
Total Number of Housing Units, 1973 est.
757
3,681
2.
Total Number of Housing Units, 1970
377
3,115
3.
Type of Housing Units, 1972:
Percent Single Family
51.7
74.0
Percent Townhouses
5.1
0
Percent Multiple Family
43.2
26.0
Percent Mobile Home
0
0
4.
Tenure of Housing, 1970:
Percent Owner- occupied
74
76
Percent Renter - occupied
26
24
5.
Percent of Rental Units by Monthly Rent, 1970:
Less than $100
21
62
$100 - $149
68
26
$150 - $199
10
11
$200 and Over
1
1
6.
Average Monthly Rent, 1970:
$ 125.
$ 98.
7.
Percent of Owner - Occupied Unit by Value of Unit, 1970:
Less than $10,000
17.2
14.2
$10,000 - $14,999
25.4
26.1
$15,000 - $19,999
20.3
21.8
$20,000 - $24,999
16.8
14.7
$25,000 - $34,999
14.4
14.5
$35,000 and over
5.9
8.7
8.
Average Value of Owner - Occupied Housing, 1970:
$18.719.
$19.769.
9.
Average Value of Building Permits for New Single Family Homes
(excludes land cost), 1971 -1973
-
$22,642.
10.
Percent of Total Housing in Price Range of Low and Moderate Income
Persons (units renting at $119 /mo. or less, homes valued at
$14,999 or less), 1970
51.2
46.0
11.
Number of Approved Subsidized Housing Units (Public Housing 236,
221 -D3, and 235), 1973
I-
1
60
w
0
HOUSING CONDITIONS, 1970 (Continued)
Oak Park
HOUSING:
Heights
Stillwater
12.
Percent of Housing Units Subsidized,
1973
.1
1.7
13.
Vacancy Rate, 1970:
Total Housing Vacancy Rate
1.3
2.5
Rental Housing Vacancy Rate
0
3.4
Housing For Sale Vacancy Rate
0.4.
0.8
14.
Housing Conditions, 1970:
Percent Overcrowded Units
5.1
7.2
Percent Units Lacking One or More
Plumbing Facilities
4.2
3.8
Number of People Living In Overcrowded Housing
125
1,463
Number of People Living in Housing
Lacking One or More
Plumbing Facilities
36
190
Estimated Percent of Housing Built
Before 1940
-
66.7
15.
Existence of a Housing Redevelopment
Authority, 1973
-
Yes
w
HOUSING VALUE BY PERCENT, 1970
Home Value Range
$ 0- 4,999
5,000- 9,999
10,000- 14,999
15,000- 19,999
20,000- 24,999
25,000- 34,999
35,000- Over
Source: 1970 U.S. Census
Percent
Oak Park
Percent
Percent
Stillwater
of Total
Heights
of Total
St. Paul
of Tota
28
2%
0
0%
120
-
184
17%
46
19%
2372
5%
308
28%
73
31%
10620
21%
234
22%
39
17%
17439
34%
138
13%
34
14%
11382
22%
125
12%
25
11%
6584
13%
63
6%
19
8%
2797
5%
1077
100%
236
100%
51316
100%
Source: 1970 U.S. Census
w
I
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Average Value of
Occupied Housing
clusive of Land
1970
Owner % of Housing in Low
Ex- or Moderate Income
Bracket
Stillwater
19,769
46.0%
Bayport
19,828
41.6%
Lake Elmo
27,469
17.9%
Oak Park Heights
18,719
51.2%
West Lakeland Township
27,342
7.1%
Baytown Township
26,716
8.5%
Grant Township
27,201
9.3%
Stillwater Township
.24,557
10.9%
Source: Washington County Planning Department
It is interesting to note that in an age
of the eight communities, the age groups
represented less than 20 percent of the
this is the age group building new homes
However, these figures do not fully take
effect that the Orrin Thompson - Croixwood
has had on the study area.
EFI PUBLIC UaR6'tiFiY
223 NORTH 4TH STREET 33
6TILLWATER, MN 55082
group breakdown
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Lot Size
Minimum lot area requirements for residential devel-
opment varies by area. In general, the western portion
of the City (west of Center Street) has a 10,000 square
foot minimum lot size requirement for each home and the
eastern portion .a 7,500 square foot requirement. The
central residential area near the Central Business
District is designated as a "medium" density area allowing
approximately 15 dwelling units to the acre and even
higher densities in some central locations very close
in to the Downtown Area.
The City also has a low density (large minimum lot size
requirement) residence zoning district classification
which has not been utilized (no area has been zoned
for this low density). It is important to note, however,
that some residential structures located on the
smaller lot sizes permitted are not connected to sanitary
sewer; these are primarily located in the "Dutch Town"
neighborhood and north and south of the Downtown along
the bluff line. Sanitary sewer has not been provided
these homes due to construction difficulties caused by
rock formations and high costs.
While the City Codes do not include complete and
specific standards for the installation of on -site
sewsge disposal and treatment, few if any additional
homes are to be permitted which are not connected
to the sewer system. It will be necessary, however,
to establish proper standards and an on -going monitoring
inspection program for all existing on -site disposal
systems. As in the past, continued study must be given
to eventually extending sewer service to the relatively
few homes in the City not now connected to the public
disposal system.
37
HISTORIC HOUSING SURVEY, 1978
(See elsewhere in this Planning Report)
ESTIMATED UNITS BY TYPE
1970
Number Percent
1979
Number Percent
One Family Homes 2,305 74 3,230 76
Multiple Dwellings 810 26 1,020 24
Mobile Homes -0- -0-
TOTAL 3.115 100% 4,250 100%
Source: 1978 Land Use Survey, Washington County Planning Department
NOTE: For housing unit types by location, see existing Land Use Map Graphic.
Housing Profile Summary
While complete and more accurate housing condition
statistics will not be available until after the 1980
Housing Census, a study of available, current data
indicates the following:
1) Stillwater has a two -part housing problem:
a) Inadequate land available for population
and housing growth; vacant, residentially
zoned land is, for the most part, un-
buildable due to rock formations and
other factors; and
b) An aging housing stock and deterioration;
a significant number of housing units are
still in varying stages of deterioration
and disrepair. Historic preservation and
restoration goals cannot reasonably be met
in a market clouded by doubt as to long-
term housing values. Housing deterioration
also presents problems of tax base, public
service costs, population composition, and
others.
2) The City seems to have met or nearly so, any
reasonable measure for its "fair share" of Metro-
politan Area low and moderate income housing.
3) While a variety of housing types and prices exist,
the existing housing supply is heavy on the lower
cost end and light on the higher priced housing
spectrum. Recent annexation proposals for
construction of a golf course and 406 homes
averaging $200,000. each or more and adding
approximately 1,300 persons to the population.
While this development would aid in adding higher
value homes for greater variety in housing prices,
it would not provide land for additional variety
in types and prices.
4) Annexation must be considered if Stillwater is
to accomodate a significant amount of new housing
and population growth; it would not seem to be
sound public policy to accomodate a significant
amount of new housing and population growth in the
rural service district (Township) when full urban
service including sanitary sewer can be provided
by annexation generally to the west of the
existing corporate boundaries.
39
5) Within the present corporate boundaries, the
primary goal should be to develop private and /or
public programs to improve the quality of the
existing housing stock. Historic preservation and
restoration must be considered of secondary
importance but could be accomplished in unison
with a general housing renovation program.
6) With only moderate progress being made in housing
renovation via private, individual efforts, it
would seem to be in the general public interest
for Stillwater to develop and implement some form
of organized, and coordinated housing rehabili-
tation program; coupled with such a housing reno-
vation program, historic preservation and re-
storation could also be more successful than
current efforts.
5. Physical Characteristics
An examination of the physical characteristics of
the Stillwater Planning Area -- both natural and
man -made -- will aid greatly in fashioning a plan
for the Area's future growth.
Possibly the most important asset the Stillwater
Area enjoys is its bountiful supply of natural beauty
and charm. Its location on the scenic St. Croix
River where the turbulent northern water is transformed
into the "still water" of Lake St. 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 "St.
Croix River exhibiting a slope in excess of 45 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 throughout 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 St. 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.
40
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.
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.
Area Strengths
The area is fortunate in being very well served by
a major highway network. 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.
Much of the 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
concentrated 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 and renovation activity in the
CBD reflects its vitality.
With few exceptions, only neighborhood commercial
service establishments have diffused into residential
areas and only in small numbers.
Only one significant area of highway- oriented commerce
has developed thus far (Highway 212).
Most of the residential additions to the City have
not exhibited a tendency to "leapfrog" (locate on
41
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 in and near the CBD gives
life to the Area's primary trade center.
The Area is fortunate in having a fine Country Club
Golf Course facility.
The Lowell Park waterfront and river development
complex is an immeasurable asset.
The attractive hospital is well located and its
influence upon surrounding development has been and
will continue to be beneficial.
The Area is fortunate in having a modern 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 accomodating 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 in the past is
evidenced by the relation among some of the various
additions to the City. In many cases where one sub-
division has been developed adjacent to another, the
internal streets do not meet logically, but instead
are offset and sometimes discontinued.
42
Past poorly regulated subdividing of land has resulted
in the formation of illogical block shapes and street
intersections in some subdivisions.
The system of street labeling is quite confusing to
someone 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 blight in some residential areas of the City is
a definite liability.
There are a number:of land uses in the CBD that are
incompatible with its function.
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 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 adequate neighborhood
parks and playlots in some of the residential areas.
Unsightly trash and debris storage on some building
lots.
As part of the current planning program, various maps
have been prepared to depict various significant
physical features. In addition to the existing USGS
mapping, these include a more detailed topography
map, existing land use, a detailed soils type map,
housing conditions map, and historic sites and
buildings of value.
Some vacant areas in the City cannot be further
developed for residential use due to rock formations
and other problems including high cost of providing
sanitary sewer. Some rock area (400 and 100 series
of soils as mapped) does have existing housing with
on -site sewage disposal systems (River bluff line
areas and extreme north part of City); additional
housing will not be permitted in these areas due to
inadequate soil conditions for on -site sewage treatment
and disposal.
43
The historic site and building map also shows available
open green space; to a large extent, this available
open space is the system of ravines extending through
the City. For many years these ravines have been
proposed as a public open space or green belt system
perhaps including trails of various types. Such
plans have not been implemented due primarily to the
lack of funds.
Much of the existing urban development of Stillwater
is located on the 800 series of soil types which are
classified as good to excellent for urban development
purposes. As annexation is now being considered,
land adjoining the present City to the west consists
of varied soil types, many of which are not well
suited for urban development. Much of the potential
annexation area contains muck (such as 540 Seelyville),
marsh land, drainage courses, and other soil varieties.
Development of future annexed land will present a
new set of conditions which must be analyzed prior to
approval of land subdivision and development requests.
Much of the land should be designated as "protection
open space" to be retained in a natural green state.
Careful planning and more use of cluster platting,
planned unit developments, and other contemporary
land development techniques should be utilized for
environmentally proper and economical development.
6. Land Use Survey and Analysis
The physical development of a community is customarily
analyzed in terms of the various types of use to
which the land is devoted. Those uses are classified
as residential, commercial, industrial, public,
agricultural, and so on. The pattern of land use in
a community results, in part, from the demands for
land prevalent in the community; land for the popu-
lation's housing requirements, for business and
industrial establishments, for schools, churches,
parks, government offices and other public and semi-
public facilities.
The land use pattern is constantly changing as the
demands for land and the availability of land are
constantly changing. A limited supply of land may
create a great deal of pressure for development of the
available land, as well as intensifying competition
among various types of land use demand. In such a
44
situation, land prices may rise to the point where the
acquisition of land for public and semi - public uses
becomes so expensive as to be financially beyond the
capabilities of the organization or government body
concerned. Not only may public and semi - public
facilities have insufficient space, in such a case,
but also various types of private development may be
of poor quality, in terms of the general public
interest. For example, land shortage leads to high
density of building development, over - crowding of
land and buildings, over - burdened streets, parks,
and other public facilities and possibly the develop-
ment of conflicting kinds of land uses in poor
relationship to each other, without adequate separation
of protective conditions.
An example at the present time are residential
development proposals for land in the Stillwater
Industrial Park due to a shortage of available and
suitable land for new housing.
Even in more rural communities, with large land
areas, there may still be a limited supply of land,
in view of the different types of land use demand.
Agriculture is the predominant land use in rural
areas, and requires much larger amounts of land than
the major urban land uses. Therefore, the same kinds
of pressures for land use and a similar potential for
undesirable results exists in rural, as well as urban
communities. Comprehensive planning and land use
control programs are equally needed.
The development of land for various uses is influenced,
or limited, by other factors as well as by the pressures
of land use demand for limited areas. A basic
factor in the land development pattern is the land
itself -- its topography, slope, drainage, the type of
soils, and the resulting development costs and
suitability. Other important factors include the
location of land areas in relation to urban centers,
employment centers, the accessibility of the land
from major streets and highways, and social and
historical patterns of development.
Different conditions prevalent in various areas
produce different patterns of land use in each
community. These differences should be reflected in
individual land use plans for each community. However,
the community development plans must also take into
45
consideration the plans of their neighboring communities,
so as to produce a more orderly and integrated
pattern of development throughout an entire area.
The development of the metropolitan area as a whole
has been influenced by regional conditions which
also should be included in analysis and planning for
local communities. It is, therefore, important for
the community land use planning programs to give
consideration to the studies prepared by the Metro-
politan Council and for local planning programs to be
carried on in cooperation with the Metropolitan
efforts to achieve a general metropolitan area plan.
The purpose of the land use survey and analysis
report is to provide adequate information regarding
the existing land use, the factors which have shaped
the land use pattern, the trends in land use development,
the relation of the land use pattern to existing
zoning, and the particular land use problems of the
communities. This information, supplemented by
population and economic analyses, is needed as the
basis from which the general land use plan is
developed and as a basic element influencing the
legislative measures for implementation of the land
use plan, zoning and subdivision regulations.
a) Community
It is fortunate that a land use survey and
analysis was conducted in Stillwater during 1960
and 1961; this provides a good foundation for
noting land use trends and evaluating the
accuracy of land use projections for 1980 made
at that time.
46
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TOTAL LAND AND TOTAL DEVELOPED LAND IN CITY AND TOWNSHIP, 1960
Total Planning Area Land . 15,240 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.
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Land Use Comments Contained in 1961 City Plan
1. Rural land amounts to an overwhelming majority
of the total land in the Planning Area, nearly
78 %.
2. All rural land is in the Township.
3. The rural land category includes 8,692 acres
of cropland, the remaining being in pasture,
swamp land, and idle land.
4. Vacant land is used only in relation to
urban classification, This is because of
the difficulty in separating vacant land
from rural land.
5. Of the total vacant land recorded as being
in the Planning Area (all within the City) 12102
acres are suitable for development.
6. A very sparse eleven acres of park land
exist in the Planning Area, all of which
is in the City.
7. The City contains only fifteen percent of
the total land in the Planning Area while
it contains nearly fifty -seven percent of
the total developed land.
8. The Township contains over eighty -five
percent of the total land in the Planning
Area and forty -three percent of the total
developed land.
9. The largest single developed land use in
the Planning Area is roads, accounting for
over thirty -seven percent of the developed
land.
10. Residential land is the next largest single
user of land with slightly over thirty -five percent
of the developed land.
11. The overwhelming amount of rural land gives
an indication of the current importance of
agriculture to the area's economy.
50
Ul
CITY OF STILLWATER, MINNESOTA
EXISTING LAND USE. MARCH, 1979
Land Use Type
Residential
Apartments & Nursing Homes
Duplexes (14.0)
3 -4 Units (3.9)
1 Family (1,224.6)
Commercial
Industrial
Utilities
Railroad
Schools
County
Federal
State
City (Parks 143.7)
Semi - Public
Public Streets
Water Bodies
Vacant
(16.0)
Total Acres
Percent Percent
rea in Acres Total Developed
1,258.5 34.30 46.00
34.0
0.90
1.25
53.4
1.40
2.00
1.3
0.03
0.05
30.0
0.82
1.10
161.9
4.40
6.00
14.2
0.39
0.52
1.2
0.03
0.04
21.7
0.59
0.80
220.0
6.04
8.14
159.6
4.00
5.90
765.2
21.00
28.20
584.0
15.90
- --
369.0
10.20
- --
3,674.0
100.00
100.0
Notes: a) Total area in land is 3,090 acres.
b) The bulk of vacant land is zoned commercial and industrial; much of the vacant
residential land is better suited for park or other non - residential use due to
lack of utilities, rock outcropping, or other reasons.
Source: Field survey by Washington County Planning Department and Design Planning Associates, Inc.
Note: City land area above is adjusted to corporate boundaries as they existed August, 1979.
It is interesting to note that the percentages of
developed land have not changed very significantly in the
past 20 years but the amounts have changed. Changes
worth noting are as follows:
1. Both the amount and percentage of land devoted
to single family homes has increased; this is
due largely to the Croixwood Addition.
2. Commercial and industrial development has not
been significant and must still be considered
low for the population base.
3. The amount of land in park and playground use has
increased significantly.
4. The percentage of land devoted to public
streets and highways has decreased somewhat
due primarily to better street planning
practices in the Croixwood Addition (larger
block sizes with fewer street intersections
as compared to older parts of the City).
5. Both the amount and percentage of vacant land
has decreased; the great bulk of vacant land
available and developable today is zoned
for commercial and industrial use; this land is
needed for non - residential development as both
the amount and percent of land so utilized in
Stillwater is too low. High quality industrial
development is especially needed to improve the
local tax base and to provide employment for
local residents.
6. The 1961 City Plan noted a serious deficiency in
the amount of land devoted to neighborhood parks
and playgrounds; this deficiency has been over-
come during the past 20 years although more progress
is still needed (see elsewhere in this planning
report).
7. In terms of land use amounts, the following
needs are indicated:
a) More development of market rate multiple
family dwellings (various types of
apartment rental units). Land use
data indicates no increase in the amount
of land devoted to multiple dwellings
since 1960; this is not correct and the
error is due to incomplete data on homes
52
designed for 1- family occupancy but actually
containing more than one dwelling unit.
New apartment construction has not, however,
been a large factor in land consumption as
compared to many other communities.
b) Additional industrial land development
is needed plus office and other commercial
uses in designated and properly zoned areas.
Commercial development should, however,
be highly coordinated with neighboring Oak
Park Heights and needs of the Central
Business District to remain economically viable
and competitive.
c) Additional park, playground, and natural
open green space retained for public use;
this includes bike and other trail systems.
Land Use Distribution
As noted in the 1961 Land Use Plan, the distribution
of various land uses must be rated as rather good but
with some exceptions. In general, major land use
conflicts have been avoided and land uses are distri-
buted in accordance with sound land use planning
principles.
Significant points related to land use distribution
are as follows:
1. Like many Minnesota Communities, the City has
not fully utilized the River, stream, and lakeshore
to their fullest advantage for enjoyment by the
public and adding to the charm and image of the
Community. Although the City owns substantial
amounts of land along the St. Croix River, major
portions of this land are leased to private
interests for various uses of a commercial and
industrial nature. Public use of the shoreland
in the Downtown area cannot be considered as totally
desirable due to a hodge -podge mixture with other
uses including railroad spur lines. Large acreage
owned by the City on the Wisconsin side of the
River is only partially developed to public
recreational use and some areas are in an un-
signtly condition. Since the City owns substantial
amounts of River shoreland, great potential still
exists for better and full enjoyment of such land
by the public.
2. Very little commercial intrusion into residential
neighborhoods has occurred; much that exists has
'been so located for many years. Many of the scattered
and isolated commercial uses such as small grocery
53
stores and older gasoline service stations are
currently out -of- business and vacant or used for
non - commercial purposes. Many of the existing
husiness establishments are in a state of dis-
repair and visual and other improvements are
needed if they are allowed to remain.
3. Although substantial amounts of public park land
has been dedicated in the Croixwood Addition,
much of it is not physically suited for develop-
ment as "active" Olay area (ball fields, hockey
rinks, etc.) due to topography and other physical
and locational features. None - the -less, this land
is valuable as open green space adding to the
residential amenities of the neighborhood.
4. While most parks and playgrounds are well
distributed to serve the resident population, some
are too small and underdeveloped (lack of
play apparatus) to be fully useful and
effective to meet recreational needs.
5. Existing land use is indicated on the Existing
Land Use map graphic; available open, green
space is also indicated on the map of historical
sites and buildings. Although much of the area in
ravines and along the bluffs is still vacant, most
of it remains in private ownership although
public ownership and use has been called for by
all Stillwater City Plans dating back to 1918.
As indicated on the Existing Land Use Map, however,
some portions at the bottom of ravines are in public
ownership due to utility easement purchase. Great
potential still exists in many areas for proper and
public use of various remaining vacant open green
spaces including the ravine areas.
6. Strip commercial and industrial development along
Oasis Avenue between Highway 212 and Lily Lake
cannot be considered totally desirable due to the
many access drives onto this major road. Improve-
ments can be made in the future. In contrast,
development to the west in the Joint Powers area
(vicinity of Stillwater Industrial Park) is and has
been quite good with very adequate traffic circulation
provisions being made in accordance with Corridor
development plans and standards for development.
7. The highly scattered nature of dilapidated housing
is a matter of public concern as noted elsewhere in
this planning report.
54
8. It is noted that the preliminary City Plan of Oak
Park Heights expresses some concern over the location
of the new County Office Building in close
proximity to housing; future potential expansion
of County Facilities in this area should be a
matter of planning coordination between the two
communities. Little or no land use conflicts
between the two Community plans or existing land use
is apparent other than the issue to County facilities
so noted by Oak Park Heights.
9. Scattered and isolated housing in the "Dutch
Town" neighborhood without sanitary sewer is a
matter of concern. Also, street access to some
housing in this general northern portion of the City
is very poor due to narrow widths, locations, and
steep topography.
10. Structures containing more than one dwelling unit
are generally scattered throughout the Community
except in the Croixwood Neighborhood. While such
proliferation of multiple dwellings has not yet
resulted in major, serious traffic or other
problems, greater caution should be exercised in
the future. Standards and criteria should be
developed and incorporated into the zoning
regulations for proper location of future multiple
dwellings.
11. In general, the City has developed in the image of
a true "River Town" with quaint neighborhoods,
diversity without conflict, exciting and scenic
vistas, and a highly desirable location for
living. Scattered instances of urban blight and
certain other less- than - desirable conditions
indicate that the full potential is yet to be
realized.
12. There are no serious discrepancies between the
existing land use pattern and the City's Zoning
Ordinance (text and district map) .
b) Downtown (Central Business District Map Insert Area)
Existing land use in the Downtown area (floor,
ground use) is as noted on the enclosed graphic;
maps of upper floor use are also available.
A detailed study of the Downtown was conducted in
1970 and 1971 and a development /maintenance plan
developed. Prior to that time, various other
plans were developed for the Downtown dating back
55
to 1918. Also during the past years, the Downtown
has been studied by various groups including Uni-
versity students and other private and public
bodies and ag4ncies. Major differences between all
existing and prior plans have dealt only with
traffic circulation problem solutions; other aspects
of all the various Downtown Plans have been
essentially the same.
CBD Land Use
Residential
Residential use in the Downtown area is predominately
multi - family with a scattering of single family houses
on the project's fringe. A mixing of residential and
commercial uses occurs in Downtown primarily along
Main Street where second and third floors are often
given over for rental apartment use or, as in several
cases, utilized by the building's owner for his own
living quarters. Some residential - industrial mixing
can also be found in the project area's north side.
The mixing of residential and industrial uses is basic-
ally undesirable and should be discouraged. In contrast
the mixing of residential and commercial uses has
considerable merit_ although such a mix requires careful
planning to be successful.
Commercial
The project area's most intensive commercial use takes
place in a aix block area along Main Street between
Myrtle and Nelson Streets. This area forms Downtown's
retail core and as such generates the bulk of the
shopping activity found Downtown. A scattering of
commercial uses occurs along Myrtle Street (between Main
and Third Streets), on Second Street, and to a greater
extent along Chestnut Street (between Water and Third
Streets).
For the purposes of this study Downtown's commercial
uses are broken down into the following categories:
*Retail - includes the retail selling of such items
as men's and women's apparel, drugs, dry goods,
hardware, furniture, lumber, cars, food, and
sports equipment. Retail selling establishments,
depending in part on the nature, size, and scope
of their trade, require prominent product
identification /display space, convenient /abundant
customer parking, adequate loading access,
and a compact clustering of compatiable retailing
uses.
56
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Revised: 7/79
57
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*Wholesale - includes the wholesale selling of many
of the same items as sold by retail establishments.
This land use activity should be located out of
Downtown's retail core and again, depending on
the nature, size and scope of the activity, requires
good loading access, convenience to transportation
modes (highway, rail, etc.) and should be
located on the fringe of Downtown or preferably
in proximity to industrial uses.
*Service - refers to commercial uses such as barber
shops, repair shops, real estate offices, dry
cleaners, and gasoline service stations. Many
service commercial land uses should adjoin compati-
able retail commercial land uses although an
exception to this rule would be gasoline service
stations which require more space and more vehicular
traffic exposure to function well. Often service
commercial establishments require the same
conditions required by retail establishments, i.e.
prominent use identification /display space,
convenient /abundant customer parking, adequate
loading access, and a compact clustering of com-
patible uses. Service commercial land uses such as
repair shops and dry cleaners also require con-
venient customer vehicular loading /unloading spaces.
*General Offices - is a land use classification
applying to insurance offices, attorneys' offices,
accountants' offices and the like. Approved
locations for this land use type would be upper
level floors of retail businesses and on the
fringe of the Downtown core. Office, land uses
should be convenient to adequate off - street
parking for employees and visitors.
*Entertainment - land uses are found in a somewhat
scattered pattern throughout Downtown Stillwater.
In the entertainment classification there are
such commercial activities as cafes, bars,
restaurants, theaters, and bowling lanes. Parking
space needed for these activities generally
does not conflict with the parking space needs
of the more day -time orientated retail commercial
uses. While the development of a recreation
commercial district that is somewhat compact in
nature is preferable to the present scattered
recreation commercial pattern (a compact district
allows businesses to be mutually supportive),
the present pattern is workable within the
proposed plan.
58
Industrial
The project area's industrial land uses are concentrated
near the north and south approaches to Downtown. Several
rather large land areas are given over to uses of an
industrial nature. The Stillwater Manufacturing Company,
Maple Island, N.S.P. and the Harris Manufacturing Company
are the most significant industrial concerns. The
railroad trackage parallel to the St. Croix River ties
up a considerable amount of land in an industrial use that
does not provide Downtown with the most favorable image;
however, it appears likely that the principle railroad
(Burlington Northern) will require at least one set of
tracks for a number of years. It will be to the Down-
town businessmen's advantage to work with the industries
located in Downtown to assist in their relocation to
more appropriate sites when such sites become available.
In recent years, some industrial land use has been
converted to retail shops, offices, and personal service
use. In addition, some incompatible uses such as automobile
repair and sales has also been similarly converted to a
more appropriate use and physical appearance.
Public
Most land use of a public nature is situated in the
project area's northwest side fronting Third Street.
Several churches and the new U.S. Post Office are
located in that area. With the municipal complex and
the public library one block west on Fourth Street, it
is advised that this area retain its public land use
flavor.
59
Structural and Environmental Conditions
Structures-
A field survey was undertaken in September of 1971 and
updated in 1979 to evaluate each major structure in
Downtown Stillwater as to its exterior structural condition.
Primary structures (small private garages and sheds
were not evaluated as to structural condition) were
rated as sound, deteriorating, or dilapidated according
to the following criteria:
Sound Buildings
No defects or only slight defects which
normally are corrected during the course
of regular maintenance. Examples of
slight defects area:
* Lack of paint
* Slight damage to porch or steps
* Slight wearing away of mortar between
bricks or other masonry
* Small cracks in walls, plaster or
chimney
* Cracked windows
* Slight wear on floors, doorsills,
doorframes, window sills or window
frames
* Broken gutters or downspouts
Deteriorating Buildings
* Holes, open cracks, rotted, loose, or
missing materials over a small area
of the foundation, walls, roof
* Shaky or unsafe porch, steps or railings
* Some rotted or loose window frames or
sashes that are no longer rainproof
or windproof
* Broken or loose stair treads, or broken,
loose or missing risers, balusters or
railings of'outside stairs
* Deep wear on doorsills, doorframes,
outside steps or floors
* Missing bricks or cracks in the chimney
which are not serious enough to be a fire
hazard
* Makeshift chimney such as a stovepipe or
other uninsulated pipe leading directly
from the stove to the outside through a hole
in the roof, wall or window
.11
Dilapidated Buildings
Endangers the health, safety and well being of
occupants. One or more critical defects, or
combination of intermediate defects in sufficient
number or extent to require considerable repair or
rebuilding; or is of inadequate original construction.
Critical defects result from continued neglect or lack
of repair, or indicate serious damage to the structure.
Examples of critical defects are:
* Holes, open cracks or rotted, loose or
missing material (clapboard siding, shingles,
bricks, concrete, tile, plaster or floor-
boards) over a large area of the foundation,
outside walls, roof or chimney
• Substantial sagging of floors, walls or roof
• Extensive damage by storm, fire or flood
Inadequate original construction includes:
* Shacks, huts or tents
* Structures with makeshift walls or roofs, or
built of packing boxes, scrap lumber or tin,
structures lacking foundations (walls resting
on the ground)
* Structures with dirt floors, and cellars, sheds,
barns, garages, or other places not originally
intended for living quarters and inadequately
converted to such use.
It should be stressed that where a structure is rated
deteriorating on the basis of an exterior appraisal, a
more thorough interior inspection may reveal the building
to be either dilapidated or sound. Therefore a certain
margin of error exists, with the likelihood that a
more detailed interior inspection would bring to light
additional housing deficiencies rather than the reverse,
i.e. more sound housing.
When results of the building condition survey were
mapped, it was evident that building deterioration in
Downtown Stillwater is quite dispersed throughout the
project area and is not concentrated in any one or two
districts. This is not to say that Stillwater suffers
from a case of "creeping deterioration" throughout its
entire Downtown area but rather is lacking in any badly
run -down district where most,of the buildings are
deteriorating or dilapidated. On the whole, buildings
were found to be in sound condition with a scattering of
deteriorating structures and only a small number of
dilapidated ones.
The following table illustrates, by primary use, the
number and percentage of buildings in Downtown Stillwater
that were surveyed:
61
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Since 1971, a number of changes have occurred;
two major new buildings have been constructed and
several deteriorating buildings have been renovated,
remodeled, and changed in use. The number of deter-
iorating commercial buildings has been decreased by
five and dilapidated buildings by two. At least
two residential buildings now, however, should be
added to the dilapidated category.
Causes of Structural Deterioration
While all buildings, due to exposure to the elements
and the use /abuse of its inhabitants, are subject
to deterioration, untimely structural deterioration
is generally the result of two primary factors:
1. Unsound and /or impractical initial
construction and
2. A lack of regular maintenance
Unsound construction can occur when a building's
owner either attempts to cut costs by using poor
materials or fails to have his building placed on
soil of sufficient bearing capacity. This latter
situation appears to be the case in several
deteriorating structures in Downtown Stillwater where
large cracks in the construction, due to settling,
are in evidence. An example of impractical initial
construction would be any building whose interior
space arrangement made the building's long term use
costly and /or inefficient.
The lack of regular maintenance on commercial type
buildings can be attributed to a number of reasons,
i.e. an absentee landlord, proximity to an inappro-
priate land use, insufficient pride in the building's
appearance, difficulty in finding a user, or generally
poor economic climate within the community. The
deteriorating condition of several residential use
buildings on the fringes of Downtown Stillwater can
primarily be attributed to the inappropriate and
unplanned mix of residential and commercial uses.
Commercial use buildings can also suffer deleterious
effects when in close proximity to certain types of
heavy industrial uses that create heavy smoke, noise,
or just provide a poor general appearance.
Environment
The following environmental factors were considered
as important in the evaluation of Downtown Stillwater's
environmental situation:
1. Overall visual impression of buildings and
property, i.e, degree of cleanliness or litter,
63
how well maintained or unkept, were all
considered
2. Sounds, i.e. these can range from pleasing
sounds such as church bells or fog horns
to irritating and harsh sounds like loud mufflers
or factory noises.
3. Smoke, dust, smog, and stench as they affect
the environment.
4. Flood and heavy rain dangers in addition to
water quality as they relate to the safety,
health, and welfare of the community and the
river -front environment.
5. Traffic congestion, inadequate parking, and
improper land uses were also considered in an
environmental context in addition to their
affect on the development of a Downtown Plan.
In any appraisal of Downtown Stillwater's environment
it should be stressed that the overall visual
impression is very favorable. Few communities anywhere
possess the same combination of striking natural
features found within Stillwater and its environs.
The heavily forested Wisconsin river bank coupled
with the contrasting townscape of Stillwater itself
makes for a very unique setting. Within this
appealing natural framework is set a town that has a
proud and distinguishing past as evidenced by its
place in Minnesota history and its many examples of
fine 19th Century architecture. In contrast, there
are noticable "blight gaps" in Downtown Stillwater's
environmental fabric and these were given special
attention in this study.
Unfortunately, Downtown Stillwater's "vehicular
entrances" suffer most from environmental
deficiencies. These deficiencies range from
general litter and unkept surroundings to
deteriorating buildings.
During the past five years, substantial improvements
have been made in the Downtown Area. Recent citizen
surveys, however, still indicate a high degree of
public frustration over the "traffic and parking
problem" of the Central Business District.
Improvements have included some private off - street
parking areas, historical and other building renovation
along Main Street especially to the south, new
construction including both commercial and housing
for the elderly, and others. Traffic circulation
improvements for the intersection of Main Street and
Chestnut have been approved by the City Council.
64
Major problems, however, still exist. These may be
listed and summarized as follows:
1. Traffic. Improvement plans scheduled on Main
Street may or may not solve the congestion
problem. It may be that the only long -term
and permanent solution to traffic congestion
Downtown will be that of constructing a new
bridge across the St. Croix.
2. Parking. To date, no approved plan or
implementation program exists for long -range
resolution of the parking problems of the
Downtown. Such a plan and program is essential
to the long -term economic stability of the
Central Business District.
3. Under - developed and Improper Land Use. All
land in the Downtown is not fully utilized to
its highest and best potential. Some land is
still essentially "vacant" and much is under-
utilized; storage sheds for lumber, junk car
storage, un -used railroad spur lines, and the
like clearly indicate a continued lack of high
demand for intense commercial and other Down-
town use.
4. Unsightly Conditions. Although much progress
has been made in recent years, unsightly
buildings and land uses still remain throughout
the Downtown. This includes some dilapidated
housing units.
5. Lack of Pedestrian Orientation. In most areas
of the Downtown, pedestrian facilities consist
only of typical business area sidewalks in
varying condition: No substantial attempt has
been made to provide for street trees, rest
benches, general landscaping, or other pedestrian
amenities. The various land use elements
(shopping, entertainment, parks, public
buildings, etc.) are not well tied together by
an adequate pedestrian system. Bike trails
through the Downtown are merely streets desig-
nated by signs and pedestrian access to the River
from Main Street is very uninviting.
6. Customer Orientation. While substantial "shopping"
uses exist in the Downtown, historical renovation
and other recent improvements may tend to
attract a "tourist" element which could lead to
the problem of tourist oriented business re-
placing business oriented to local shopper
service needs. Properly done, however, the
tourist business can be an asset to the
Community and not replace the local shopper need
orientation.
65
7. Lack of an Approved Plan and Coordinated Im-
provement Program. Hisotric building and other
structural renovation taking place is largly
that of individual efforts; no formal or group
coordinated renovation /improvement plan is being
followed or implemented. It seems clear,
however, that uncoordinated, individual private
efforts have a limit to success in the absence
of an approved plan and implementation program
for total Downtown improvement and direction.
Without an approved and properly implemented
plan for resolution of the traffic congestion and
parking problems, the full economic potential of
the Downtown cannot possibly be reached except
by pure chance and luck. For example, increased
business volume will lead to added traffic
congestion and need for off - street parking already
considered by the general population to be a
major problem (see citizen survey results in
Appendix to this planning report). It seems
highly unlikely that individual and uncoordinated
private efforts can solve, in the long run, the
serious traffic and parking problems involved.
Public action is required if the various
problems of the Downtown are to be fully resolved
and the area developed and maintained in
accordance with expressed citizen desires.
8. An environmental factor influencing all of
Downtown Stillwater to a greater or lesser
extent is the annual threat of flooding on the
St. Croix. Creating an added danger is the
possibility of heavy rains during the reaching
of a flood crest. Such an occurrence would result
in the formation of a "lake" behind the dikes
and the necessity of pumping this rainwater over
the dikes and into the St. Croix. To eliminate
the heavy cost of the annual dike preparation and
clean -up and to provide downtown merchants with
more complete flood security, a permanent dike
must be built soon.
9. Presently Stillwater's air pollution level does
not appear -to warrant great concern, however,
this situation should be monitored.
c) Historical Sites (Inventory)
The Citizen Plan;
indicates a very
preservation and
of the Community
of importance by
in Stillwater.
zing Questionnaire Survey clearly
strong interest in historical
restoration. The historical aspects
environment are given a high place
an apparent majority of.the residents
..
Historical sites and buildings are as indicated on
both the Existing Land Use Map and a separate graphic
entitled River Town Restoration Housing Survey. In
all but the Downtown, "A" and "B" buildings are noted
on the maps; funds are currently being sought for
a detailed inventory and analysis of Downtown
structures.
While noted as "houses" on the survey map, some of
the locations are not homes; these include the old
State Prison (now utilized for industrial type uses)
and the nearby Indian Historical Plaque, the old
Nelson School currently vacant, and the Old Court
House.
Historical values were assigned and mapped as follows:
"A" Houses. Those structures (mostly residential)
built prior to 1915 still having
intact, outstanding, and impressive
architectural qualities.
"B" Houses. Built prior to 1915 but have been
altered; potential still exists,
however, for an "A" rating with
renovation.
"C" Houses. Essentially newer buildings and
those not considered of historical
architecture value or significance.
As indicated by the graphics, structures and sites
of historical significance are rather generally
scattered over much of the Community east of Center
Street: No entire blocks are rated "A" and only a
very few are 100% rated "A" or "B ". Thus, no con-
centrated area of 100% historical value exists.
A very large area of the Community does, however,
have a significant number of strucutres with a
historical value to justify citizen interest, the
desire of many for historical preservation and
restoration, and strong consideration of this aspect
of the total City environment and "image ".
Citizen interest and concern with the Historical
aspects of Stillwater's environment is clouded by
several factors:
a) While interest is high in historic preservation
and restoration, there is no highly coordinated
plan or implementation program in the Downtown
nor in the residential neighborhoods. Past
renovation efforts are largely individual and
uncoordinated although organized groups such as
RTR (River Town Restoration) have become
involved. The fact is, however, that there is
no overall, coordinated and directed historic
preservation plan or implementation program for
the Community.
67
b) In some areas, both the structures of historic
value and adjacent and nearby structures must
be rated as "substandard" (dilapidated, in need
of major repairs, unsightly, etc.). General
residential deterioration is not condusive to
promoting the type of financial investments
required for substantial historic restoration.
c) No clear concensus exists on historic preservation
nor restoration needs or implementation programs.
The lack of concensus becomes especially clear
and sharp when individual properties and buildings
are considered. Lack of agreement on the Old
Opera House Downtown, the Nelson School, and others
have produced sharp differences of opinion.
Further, there is no general agreement as to
details of design such as mixture of architec-
tural styles in the Downtown, bluff line building
types or heights, and other detailed considerations.
As a general matter, no clear concensus exists
as to what extent historic buildings and areas
should be preserved, how all of this might be
accomplished, nor if new construction in various
areas should be designed compatible with historic
aspects of the immediate environment.
It is clear, however, that a large portion of the
local population places a high value upon the historic
values of Stillwater as do the many visitors. Yet to
be determined is the extent to which historical buildings
and sites will be preserved and by what ways and
means. It seems obvious that rather limited historic
preservation will occur, especially in the residential
neighborhoods, until such time that a concensus is
reached and some form of plan and action program
of a coordinated and directed nature is implemented.
B. POLICY PLAN
Goals are desired objectives to be reached. Private goals
may include family income levels, desired retirement
age, places to visit, and the like. Public goals may be to
attract more industry, provide more park and playground
space, balance the City budget, and similar aspirations.
Public policies are approved programs or stated ways and
means by which the public goals are to be attained. A
weakness in past City Plans for Stillwater may be that
of heavy reliance upon plan maps and design (master plan
concept) rather than greater reliance upon "policy
planning ". In effect, policy planning involves answering
the questions, "Once we know what we want, how do we
get it ?"
Many past plan proposals such as public use of the ravines,
better utilization of the River in the Downtown Area,
and the like may not have been implemented due to a lack
of workable policies. In other words, there may be a
lack of concensus on just how such goals can be achieved -
including the necessary financing.
It is also possible that some goals are simply not
strongly desired by residents and land owners. Other
possibilities include a lack of strong will to achieve
the goals, financial inability, lack of leadership, or
the lack of "know- how ".
In the current planning process, care should be taken to
avoid concentration upon goals which may not be strongly
desired by a majority of the residents and land owners.
Proposals should not be made which are not financially
or otherwise practicable and feasible. It should be
determined what is so strongly desired by the Community
that serious efforts will be made to realize the desired
goals.
1. Land Use
Suggested land use goals and policies are considered
in this section of the Planning Report. Community
facilities, utilities, transportation, and other
environmental factors are considered in Part III
of the report.
Since all land is utilized for some purpose including
transportation and utilities, it is necessary to
consider all parts of this planning report to obtain
a total picture of proposed land use plans. It is
for this reason that the word "comprehensive" is
included in.the City Plan (Comprehensive Municipal
Development Plan).
Due to the age of development in some of our
communities, it may be more proper now to utilize
the term "Comprehensive Municipal Development and
Environmental Maintenance Plan and Program ". Land
use goals and policies should include those for new
development, preservation of good existing environmental
conditions, and renovation of environmentally de-
ficient areas as defined by the Community at large.
Due to the age of Stillwater, as much emphasis must
be placed upon environmental protection and improve-
ment of developed areas as is placed upon concerns
with potential future development or redevelopment.
Most American cities have now matured to the point
where it is no longer economically or otherwise
69.
practicable to simply abandon older urban areas in
favor of new development sites.
Just as is the case with all large central citits4,
Stillwater must consider preservation and rehabili-
tation of the environment in past developed areas.
The problems of urban deterioration and abandonment
are well known and serious - in physical, economic,
and social concern ways.
The following suggested goals have been compiled
from various sources with heavy reliance upon results
of the Citizen Planning Survey Questionnaire (See
Appendix to this Planning Report).
a) Goals
The setting of goals is important but so too is the
establishment of a priority system; all goals cannot
be considered of equal importance for timing of
achievement. In the Metropolitan Area, it is a
legal requirement now that all communities and school
districts develop a long -range Capital Improvement
Program (See elsewhere in this Planning Report).
This is a process whereby each community must list
its proposed or planned major public expenditures
by yearly increments and projected at least five
years into the future. Further, the Metropolitan
Land Planning Act requires that the City Plan be
rather specific as to its development and maintenance
plan for the next five to ten years (staged
development /maintenance plan).
In this context, environmental plans for development
20 or more years into the future are of secondary
importance to the five and ten year plans. Goal
priorities must be established in the Long Range
Capital Improvements Program and Budget since it is
necessary to list by year and projected into the
future how the Community intends to. approve and
finance various projects and improvements. It is
anticipated that the setting of priorities will take
place primarily during the process of completing and
implementing the Capital Improvement Program.
Suggested major public environmental goals are listed
as follows:
1) Retain the small town "Village" atmosphere and
environment.
2) Plan for retention of a "small" town with an
ultimate maximum population of between 20 and 25
thousand persons. Graphics are included herein
70
indicating a suggested annexation area to accom-
plish this goal; it is noted, however, that the
proposed annexation area is not likely to
accomodate much over 20,000 persons due to its
physical characteristics unless a much higher
density (such as apartments) is permitted in
much of the area. As such, it is more likely
that the planned ultimate population of Stillwater
will be close to 20,000 persons. One of several
reasons for setting this maximum population
growth is the belief that individual citizen
contact with and control over local government
tends to "break down" when population exceeds
25,000 persons.
3. Historic preservation and renovation is a
desired goal; the specifics of this goal and its
implementation are contained elsewhere in this
report.
4. The undesirable affects (traffic hazards, un-
sightly conditions, etc.) of "strip" commercial
development along Highways 212/36 should be
stopped; such strip development along other major
roads of the area should not be permitted in
the future.
5. Efforts to improve the Central Business District
should be continued; major emphasis should be
placed upon resolution of the traffic congestion
and parking problems.
6. Greater emphasis should be placed upon improvement
of the existing environment; this includes major
efforts at rehabilitation and clean -up /fix -up
campaigns.
7. The appearance of commercial and industrial
development is a matter of public concern;
appearance and maintenance standards should be
imposed upon both new and existing uses.
8. Tax equalization studies are needed and public
financial planning should be expanded (to a
large extent, this is now required by law with
the requirement of a long -range capital improvement
program and budget).
9. Urban sprawl should not be permitted; a sharp
distinction should be retained between "urban"
and "rural" areas.
10. Various existing recreation facilities (certain
parks and playgrounds for example) should be
improved.
71
11. Improvements should be made in the distribution
of neighborhood recreational facilities and
services.
12. Added facilities and services should be made
available for senior citizens; greater recognition
should be given to an aging population and
downward trend in family size.
13. All feasible and practicable measures should be
taken to assure the physical and economic
viability of the Downtown prior to permission of
competitive developments in other areas of the
Community; in other words, commercial and
industrial development should be coordinated and
related on a total Community wide basis.
14. The physical appearance and economic condition
of all existing business-locations should be
improved as deemed appropriate; steps should be
taken to remove in a reasonable fashion those
few business establishments in residential
areas which are detrimental to residential
amenities and economic values.
15. More emphasis should be placed upon provision of
facilities for pedestrian and other non - motorized
circulation needs. This goal is of importance
not only to general environmental considerations
but also the changing energy crisis situation. '
16. Adequate and affordable housing for the elderly
should be provided in adequate amounts and
locations for all residents who desire to live
in the Community during retirement years.
17. Moderate and low income housing should be pro-
vided as needed but not in excess of the Community's
"fair share" of the total Metropolitan Area
needs; such needs should be re- evaluated on a
periodic basis.
18. Emphasis should be placed upon "quality" and not
"quantity" in the future as it relates to new
development. New growth and development should
be properly staged so as not to outdistance
the Community's ability to pay for the increased
need for public facilities and services.
19. New commercial and industrial development should
be encouraged but limited to that necessary for
an adequate local tax base and local employment.
This requires a measurement of local needs;
large and extensive business and industry that
would employ large numbers of persons not residing
in the Stillwater area is not desired.
72
20. Annexation of land adequate to accomodate the
population growth and housing needs of an urban
population with full urban services as the
demand will be created by new business and
industrial employment in the City. New business
and industry should be properly controlled and
designed to help preserve the "Village" atmosphere
and environment.
21. At least one large park with level ground for a
variety of family leisure time and recreational
needs should be acquired and developed.
22. Each detailed and specific concern of individual
citizens as noted from the Citizen Planning
Survey Questionnaire should be reviewed and
dealt with in an appropriate manner in the process
of developing and implementing a long -range
capital improvement program. These concerns
had to do with sidewalk improvements, tree
trimming, traffic controls, playground improve-
ments, and the like.
23. Residential development and expansion should be
gradual (staged), carefully planned, and controlled
to preserve the desired "small town or village"
atmosphere and environment.
24. Among other improvements, a bypass route (which
may include a new river bridge) for Downtown
traffic should be developed and other measures
taken to improve the Downtown traffic and
parking problem; this is a major citizen concern.
25. Traffic improvements should also be made along
Highway No. 212 (many of which are under construction
or have been completed during the 1979 construction
season) and at various locations (primarily
local residential streets) about the Community.
26. An expressed citizen desire is for improved
quality, efficiency, and economy of local
government; while a majority of the residents
do not believe that local government taxes are
too high (see Citizen Survey Results), there is
a very strong indication that they should not
be raised.
27. Greater emphasis should be placed upon the
preservation and public use and enjoyment of the
various lake and River shoreland areas.
28. As land is developed for housing and other
purposes, more natural, open green space should
be preserved for public use and enjoyment than
in the past.
73
29. Greater use should be made of "planned unit
development ", cluster platting, and other more
contemporary land development planning techniques
for pleasing and economical design and more effficient
use of the land including preservation of open
space in an economical and satisfactory manner.
30. Avoid commercial intrusion into residential areas;
strong enforcement of zoning and other codes and
ordinances affecting the living environment would
be supported by a majority of the resident popula-
tion (See Citizen Survey results in Appendix).
31. Acquire the vacant ravine areas in the City and
develop for trail, "lineal parks ", and other
public uses as may be appropriate.
32. Improve upon those aspects of the existing en-
vironment that Stillwater people enjoy; planning
should be geared to concentrating on expressed
enjoyment of various existing facilities and ser-
vices rather than introducing new and different
environmental developments and improvements.
33. Concentrated efforts should be made for greater
participation by individual citizens in local
government decision making. Greater participa-
tion should also be sought in various Community
activities, programs, civic events, and educa-
tional programs of all types (See Citizen Survey
results in Appendix).
34. Additional information should be provided to the
citizens such as location and schedules of bus
routes, recreational facility locations and pro-
grams and services, and other information desired
by Stillwater citizens.
35. Standards and criteria should be established for
the proper location of multiple dwellings; criteria
should be the same for low and high income housing.
36. The appearance of all major entrances (highways) to
the City should be improved; this includes entrances
to the Downtown area.
37. Resolution of the Downtown parking problem should
be a total City responsibility and not left to re-
solution by individual commercial property owners;
financing of Downtown parking facilities should
not, however, be a total City responsibility.
74
38. Extend sewer service to those developments not
currently connected to the Community disposal
and treatment system.
39. Rapid change and development is not desired;
this means, for example, Downtown improvement
should be gradual and not an expensive "crash ",
do- it- all -at- one -time type of improvement
plan or program.
40. Primary emphasis in planning for Stillwater within
the foreseeable future should be placed upon
plan implementation; the translation of general
plans into specific plans is of little value if
neither can be implemented.
b) Policy
The following suggested policy statements are of a
more general nature having to do with major issues
as raised by the System Statement for Stillwater by
the Metropolitan Council. Certain more specific
policies will be contained in the final draft of
Part IV. Implementation Program.
Basic policy proposals for consideration are as
follows:
1. The "small town" or "village" atmosphere and
environment will be retained via:
a) Active, agressive, and coordinated
efforts at historic preservation and
restoration;
b) Setting a maximum limit upon land to be
annexed and population numbers to be
housed. The maximum planned population
shall not be more than 25,000 persons nor
shall land be annexed within the fore-
seeable future outside of an area bounded
on the east by the St. Croix River, on
the south by Highways 212 and 36, on the
west by County Road 15 (Manning Avenue),
and on the north by Highway No. 96. It is
estimated that this annexation plan will not
accomodate in excess of 25,000 persons and
more realistically a population of closer
to 20,000 persons.
c) The Downtown will be gradually improved and
with greater participation by local government.
d) All types of developments shall be controlled
and to avoid a "typical suburban look" or
75
an intense, larger city atmosphere and
appearance.
e) Efforts will be made to obtain greater
citizen participation in local government,
civic affairs and events, community
activities, and planning and improvement
efforts.
2. It shall be the policy of the Community to
"encourage" historic preservation and renovation
but not to require , by local law, the preservation
or restoration of historic housing or non-
residential structures. The City will, however,
give greater aid and help to coordinate historic
preservation programs. Among other means, the
City will establish a committee, commission, or
task force to assist property owners who desire
aid in historic preservation or restoration
and require the review of all building permit
requests for conformity to historic preservation
and restoration goals and design criteria
(specific) yet to be established. The City will
not, however, refuse to issue any building permits
for development not in conformity to historic
preservation goals and design criteria.
3. The City shall support the efforts of the Joint
Powers Planning Committee and others, including
Oak Park Heights, to control "strip" commercial
development of an unsightly and hazardous type
along all major roads. Strip commercial
development of Highway No. 96 nor any other major
City, County, or State road shall not be
permitted in the future. The status of Highway
No. 96 as a "scenic route" shall be observed
in planning for adjacent development.
4. The City shall participate in and assist in the
gradual improvement of the Downtown to the extent
that such assistance is desired by the land
owners and tenants involved. Among other
considerations, the City will assist in the
planning, development, operation, and maintenance
of adequate off - street parking in the Downtown
area and pursue improvement plans for resolution
of the traffic congestion problems. Over the
years, consideration shall also be given to
provision of a more efficient and satisfactory
street light system, landscaping, pedistrian
circulation improvements and amenities, and other
such improvements. When provided, said improve-
ments shall be financed by means other than
taxation of areas outside of the Downtown.
76
5. Agressive and coordinated plans and programs for
structural rehabilitation and annual fix -up/
clean -up campaigns will be supported and
assisted by local government. Zoning and
other codes and ordinances affecting the
appearance and quality of the environment will
be strictly but fairly enforced.
6. Efforts will be made to improve the appearance
of existing business and industry and to enact
zoning and other "performance standards"
affecting the appearance of proposed new non-
residential construction. This shall include
adequate sign controls, architecture as
appropriate, site planning, landscaping, and
the like. Codes assuring continued proper
repair and maintenance will be enacted and
enforced.
7. Financial planning will be improved via the
long -range capital improvements programming
and budgeting and other appropriate means.
A part of this procedure shall be periodic
examination of the tax structure sources
of revenue, and other aspects of revenue and
expenditures. The City will actively and
agressively seek State, Federal, or other
financial grants -in -aid to assist in plan
implementation such as park and playground
acquisition and development, procurement and
public use of the ravines, and the like.
8. The City will support planning efforts by
neighboring communities such as Baytown,
Stillwater Township, and Grant Township to
prevent "urban sprawl" and to preserve open
space and agricultural land in appropriate
locations. Land adjacent to the planned expansion
(annexation) area to the north and west of the
City should be considered a "rural service
district" and maintain the sharp distinction
between urban Stillwater City and adjoining
rural community environments.
9. The City will seek outside financial grants -
in -aid to expand,acquire new and larger sites,
and improve and develop various existing
neighborhood parks and playgrounds. Efforts
will continue to purchase the large vacant
area southwest of Lily Lake for a new and
complete City Park.
10. Developed recreation facilities and services
will be examined to assure proper distribution
for ready availability to residents of all
neighborhoods.
77
11. In the Plan implementation process, strong
emphasis will be placed upon properly providing
for the housing, leisure time, and other needs
of the retired and elderly. Facilities and
services will, however, be aimed primarily at
providing for the needs of City residents and
not at attracting elderly persons from outside
the Stillwater area. There is no intent to
encourage a "retirement" community attractive
to residents throughout the Metropolitan Area
or neighboring Wisconsin.
12. It shall be City policy to protect the
Downtown from excessive competition from out-
lying retail and other business developments-
provided Downtown land owners and tenants
take all possible, reasonable, and needed
steps towards area improvement (physical
and competitive economic ability). While the
City will support and assist in private
Downtown efforts at renovation and economic
rejuvination as requested, it will not control
or require improvement efforts. The City will
not, however, allow the Downtown to become
deteriorated to the point where it is no longer
• visual asset and source of Community pride,
• strong employment base, and a reasonable
tax income producer; should serious deterior-
ation occur in the Downtown, the City should
in the general public interest re- examine
its policy of relying heavily upon private
initiative. In any event, the basic policy
of the City shall be to encourage and assist
in keeping the Downtown in a sound physical
and economic condition to its highest potential
prior to permitting undue competition from
new shopping centers. Undue competition shall
mean new commercial floo-x area developments
that would draw existing business establishments
out of the Downtown creating vacant floor
area and buildings and resulting deterioration
and decline. A special purpose zoning district
shall be employed in the Downtown Area.
13. The City shall establish a new zoning district
titled "Existing Business District" to properly
regulate and assist in the renovation of various
existing commercial developments now within or
in close proxmity to residential development.
Existing business within residential neighbor-
hoods of a nature detrimental to residential
living amenities and values shall not be
encourages in any manner to remain; improvements
which reduce conflicts with adjacent and nearby
residences will, however, be encouraged.
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14. In the capital improvement programming and
budgeting process, greater emphasis shall be
placed upon pedestrian circulation needs
and amenities; this shall include acquisition
and development of a trail system, sidewalk
improvements and construction, tree trimming,
removal of hazards, and the like. Pedestrian
considerations shall include commercial and
industrial areas as- well -as residential.
and recreation areas.
15. The City shall support the Housing Policy of
the Metropolitan Council with respect to the
provision of low and moderate income housing
on a "fair share" basis. The City will
not, however, permit construction of more
than its fair share of such housing until
such time that the local tax base and other
public finance considerations could properly
support greater numbers. At the present
time, there is a need for construction of
higher value housing, business, and industry.
16. Future growth and development shall be
properly planned and staged in accordance
with the City's ability to properly provide
and finance the need for new and improved
public facilities and services- The capital
improvement programming procedure will be the
major tool utilized in implementing this
policy.
17. No attempt will be made to develop a Downtown
that attracts tourists in such numbers that
local residents are deprived of focal shopping
and service needs in the Area. Further,
commercial and industrial developments shall
be judged primarily based upon their quality,
appearance, ability to provide local jobs,
and strengthen the local tax base; larger
industries that may require substantial
employment by persons not residing within the
Stillwater area shall not be encouraged.
18. Although local residents, in the majority,
do not consider the need for a new bridge
across the St. Croix as an "urgent" need;
they do consider resolution of the Downtown
traffic congestion problem as an urgent
need. The City will continue to support
efforts to construct such a new bridge to
the south or north of the Downtown as this
may be the only viable long -range solution
to Downtown traffic problems.
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19. Flood control measures shall be implemented
as part of the overall Downtown improvement
effort and in conjunction with better public
use of the River shoreland in that area.
The'City will not, however, develop and allow
for full public use of all River shoreland
in its ownership until such time that financial
resources and staffing for supervision and
adequate maintenance is secured.
20. The City will support the efforts of Oak
Park Heights and the Joint Powers Planning
Committee to properly control land use and
otherwise improve traffic circulation adjacent
to Highways 212 and 36. Established standards
for location of drive -in business, location
and number of access drives, and the like
will be rigorously enforced.
21. New business and industry and higher value
housing construction will be encouraged to
assist in strengthening the Community tax
base. "Encouragement" shall not, however,
be interpreted to mean a relaxation in quality
standards including various zoning provisions
and controls. It is well noted that enforce-
ment of reasonable zoning and other quality
controls does not discourage quality business
and industry but rather attracts it due to
physical and economic stability created.
22. The City shall not permit additional develop-
ment that is not connected to the public
sanitary sewer system except in cases where
all conditions meet standards as recommended
by the Metropolitan Council. Further
exploration shall be made for the financing
of sewer extensions into presently unsewered,
developed areas such as the Dutchtown
Neighborhood. Annexation will occur on the
basis of logical extension of the public
sewer. system and other public services and
not on the basis of annexing land which
cannot be provided such services and thus
requiring the use of private on -site sewage
treatment and disposal systems. It shall be
the policy of Stillwater to provide a full
range of urban services for all development
within its corporate limits.
23. Tax increases shall be avoided by attracting
new business and industry, higher value housing,
and actively seeking outside grants -in -aid,
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the City will maintain its level of public
services and facilities at a level not
requiring a tax increase provided this can
be done without creating hazards to the public
health, safety, and general welfare.
24. Further private development of vacant shore -
land will not be permitted; gradually, the
City will develop and make available shoreland
it now owns for recreational and other such
uses by the public as financial and other
resources become available. In annexation
areas, drainageways, streams, ponds, swamps,
lakeshore, and other natural features will
be protected and preserved as appropriate.
25. Certain revisions and additions to various
codes and ordinances and public procedures
shall be made to assure retention of adequate
open, natural, green space and water bodies
in proposed annexation areas. Planned unit
developments, cluster platting, imaginative
and innovative urban design, and other ways
to improve the quality of development and
resultant environment in new developments
consistent with the "small town" or "village"
atmosphere desired will be encouraged.
26. All codes and ordinances affecting the
environment will be strictly but fairly
enforced.
27. The stated specific desires and concerns of
individual citizens will be considered on an
annual basis as City budgets are prepared
and the long -range capital improvement
program is extended five years into the future.
In this manner, priorities may be established
and citizens informed as to what period in
time requested improvements are to be made.
28. Public hearings for capital improvement
programming and budgeting as- well -as periodic
use of citizen survey questionnaires and other
means will be periodically utilized to help
maintain good and proper citizen communication
in the planning and development process.
29. Responsibilities will be assigned; that is,
specific persons and /or groups will be assigned
to work on the accomplishment of various
goals. For example, specific persons must
be assigned the tasks of assisting home
owners and others who are interested in, but
need help for, historic renovation.
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30. Informational brochures and maps will be
prepared showing recreational facilities and
services available, community education
programs, bus routes, bike trails, places
to go for needed assistance and direction,
and the like. Similar information programs
are now in effect in various Twin City
communities.
31. Standards and criteria for the proper location
of multiple dwellings shall be included as
an amendment to the zoning regulations.
32. Additional intrusions by commercial uses into
residential neighborhoods shall not be
permitted; new commercial zoning districts
shall be established for various types of
commercial activity and adequate sites shall
be planned for such uses so as not to need
land in or in close proximity to housing
for such activities.
33. Specific, planned locations for multiple
dwellings and low and moderate income housing
shall not be designated on the City's land
use plan; rather, standards and criteria
for proper location of such uses shall be
established to evaluate specific development
proposals and to select sites for development
by public agencies that may be involved in
the future. It is recommended that such
sites not be pre -zoned in most instances
but rather properly zoned on the basis of
specific development proposals which can be
evaluated on the basis of the standards and
criteria to be established. Zoning specific
land parcels for such uses should occur only
in the event land use analysis reveals that
specific land parcels should be protected and
preserved for such use due to a shortage of
available vacant land or other just cause.
34. The appearance of all major entrances to the
City can be improved much in the same manner
as now being demonstrated by action of the
Joint Powers Planning Committee, better
utilization of public owned land, annual
clean -up /fix -up /spruce -up campaigns, enforce-
ment of litter and maintenance codes, en-
couraged changes in land use, and other means.
One major means is to prohibit unsightly
"strip" commercial development along the
various major roads.
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35. Within the foreseeable future, the City
Planning Program will concentrate upon the
following:
a) Evaluation of each goal as to
its priority rating.
b) Development oaf ways and means to
implement plans of high priority
with projections made five years
into the future for selected projects
and goals.
c) Development of the detailed plans
and programs necessary for construction
or implementation of programs for
high priority items which have been
determined practical, desired, and
economically feasible.
d) Assignment of responsibilities to
individuals and groups for doing
the actual work that is involved in
plan implementation and goal achievement.
e) Updating and augmenting the City Plan
as may be necessary due to changing
needs, conditions, and citizen desires.
This will include evaluation of con-
formity to the Metropolitan Development
Guide and other regional and area -wide
plans, policies, and considerations.
36. Attempts will be made for better communication
and coordination with adjacent and nearby
communities and special districts to properly
coordinate planning and development and to
consider the needs and desires of the total
St. Croix Valley Community.
c) Standards
Urban and rural development standards are specific
measures of quality. They are considered as
minimum in most instances, and some may be
enacted into law as regulations for zoning,
subdivisions, and other guides and controls
(or ordinances) affecting the physical environment.
Such standards also tend to serve as goals
although not necessarily "ultimate" goals, since
they are the minimum necessary for reasons of
public health, safety, convenience, and general
welfare.
Standard Definition: 3: something established
by authority, custom, or general consent as a
model or example: (CRITERION) 4: something set
up and established by authority as a rule for the
83
measure of quantity, weight, extent, value, or
quality.
SYNONYMS: STANDARD, CRITERION... denote a means
of determining what a thing should be. STANDARD
applies to any definite rule, principle, or
measure established by authority; CRITERION may
apply to anything used as a test of quality whether
formulated as a rule or principle or not...
SOURCE: Webster's Seventh New Collegiate
Dictionary (Merrian- Webster: 1967)
In an age of increasing prosperity and rising
level of general education there is often a
demand for above average residential amenities,
better buildings, added retail shopping con-
veniences and other desires that may render
"minimum" or "average" development standards
inadequate as related to local development
policy and goals. Minimum standards are not
adequate for people seeking a better -than-
average living and working environment. It
should be noted, however, public planning must
be limited by reason and work within a proper
legal framework. While it is the responsibility
of the local planning effort to encourage higher
than minimum standards, it is not possible to
use higher standards uniformly across an urban
area since there are many people, corporations,
institutions, and agencies for whom only the
minimum is possible.
The "minimum" standards utilized as quality control
measures in any area should, however, be as high
as is practicable within the realm of physical,
economic, and social feasibility. In planning,
however, the compromise between minimum and high
standards must not be so low as to be the
equivalent of no planning at all. Thus, the
development standards as proposed herein have
been developed to represent a set of practical
and desirable goals for both private individuals
and public officials to achieve step -by -step
over the coming years.
Certain standards are required by State and
Federal Legislation and others are suggested by
the Metropolitan Council. For the most part,
however, standards for Community development and
proper maintenance are a local matter to be
determined by local government.
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An examination of Stillwater's codes and ordinances
and existing City Plan indicates the need for
changes in certain standards and the addition
of others. Recommendations are as follows:
Miscellaneous
It is suggested that various development
standards on file with the Washington County
Planning Department be utilized pertaining to the
following subjects:
a) General Land Use and By Type
b) Zoning
c) Subdivision
d) Community Appearance
e) Mining
f) Residential (all types)
g) Utility Sheds
h) Public Buildings
i) Public Works
j) Fire Stations
k) Police Facilities
1) Schools
m) Hospitals
n) Recreation
o) Libraries
p) Churches
q) Cemeteries
r) Utilities
s) Public Water Supply
t) Wells
u) Sewage Disposal (public and
v) Land Fill
w) Refuse Disposal
x) Storm Drainage
y) Streets
z) Parking
AA) Transmission Lines
BB) Street Trees
CC) Sidewalks
DD) Rural Area Development
EE) Fences
FF) Swimming Pools
GG) Cluster Platting and Density
HH) Planned Unit Developments
II) Flood Plain Zoning
JJ) Pollution
Soils
on -site)
Zoning
A detailed soils map has been prepared for
Stillwater (graphic included herein). All
development plans shall be evaluated for their
conformity to soil capabilities as described in
the Washington County Soil and Water Conservation
Plan. Soil numbers on the map correspond to
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names, descriptions, and types noted as suited
for agriculture and /or urban development in
The Guide To Use Of Soil Survey Interpretations
by the U.S. Department of Agriculture, Soil
Conservation Service. Also, all development
proposals will be submitted to the local SCS
Office for technical staff review and recommen-
dations.
St. Croix River, Bluffland, and Shoreland
Washington County Development. Code, Chapter
Seven. DNR standards applicable to St. Croix
National Wild and Scenic Rivers Act and lake
classifications as applied to urban, general
development areas. A special "St. Croix River
District" will be added to the zoning ordinance
as well as appropriate lake shore and stream
districts and regulations, (to include DNR
standards and criteria for the management of
municipal shoreland areas).
Tree Waste
Tree, waste menagement plan for Washington
County.
Flood Plain
As per Washington County Model Ordinance and
New Federal Requirements for Flood Insurance.
Downtown plan also has provisions for flood
protection, maximum on -site water storage via
wetland protection and on -site ponding shall be
required.
Wetlands, Waterbodies, and Water Courses
As per Metropolitan Council recommended model
code and Washington County model codes and
standards.
On -Site Sanitary Sewer Disposal and Treatment
As per Washington County model code which conforms
to all State PCA standards and requirements.
It is not anticipated, however, that any
additional developments will be permitted
without connection to the public sewer system.
Existing on -site systems will be regularly
monitored (not less than once each year) by
certified technicians (professional inspectors).
:.
Energy
All new developments shall be evaluated as
to energy conservation elements contained
therein; this shall include recommendations
for Solar Access Protection by the Metropolitan
Council, Local Planning Handbook Publication
No. 07 -79 -059. Subdivision requests shall
be evaluated for conformity to the recommended
standards as to lot size, shape, orientation,
and the like. The City may consider density
and other incentives for inclusion of energy
saving design built into new developments.
The basic Plan for Stillwater calls for
maximum utilization of the "Free Standing
Growth Center" concept for policy determinations
including energy saving elements such as
encouragement of local employment for local
residents to reduce commutor traffic and
miles of travel, increased emphasis upon
trails for walking and non - motorized traffic
and similar energy saving considerations
for the total City Plan concept.
Housing
As in the past, Stillwater will strive for
diversity in housing. Basic housing standards
as recommended by the Metropolitan Council
shall be utilized; examples are as follows:
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Single Family Residential
Lot sizes 6,000 to 8,000 sq. ft. lots
and /or or a density of 5 to 7 units
densities per acre. This standard
adequately protects health,
safety and welfare. (current
Stillwater minimum is 7,500 sq. ft.)
Floor Area Land -use regulations shall
not specify minimum floor
areas for single detached
homes.
Parking and Land -use regulations shall
Garages not require the construction of
a garage with single - family
detached homes. However, these
regulations may require the
placement of a house on the lot so
that a garage could be built at a
later- date without needing a variance.
Note: Also utilize: Advisory Standards For
Land Use Regulation, Metropolitan Council
and the Association of Metropolitan Municipalities,
August, 1977
Multifamily
Stillwater shall permit
multifamily densities for
3 -story structures of 20
units per acre in areas
suitable for such housing.
Densities higher than 20
units per acre shall be
allowed where the level
of service is able to
support such development.
Local floor area size
requirements will be reduced
if found to be unnecessary
or excessive in todays
environment.
Local land -use regulations
shall not require the
construction of garages with
multifamily housing. if
intended for moderate or low
income occupancy. Regulations
should not require in excess
of 12 or 2 off - street parking
spaces per unit, depending on
circumstances. When feasible,
the parking space count should
be reduced, with reserve
capacity allowed to reach the
12 or 2 space count. Any
garages provided in a develop-
ment should be included in the
off - street parking space count.
Minimum lot size requirements shall also be
evaluated on the basis of the following:
Soil types.
Type of housing expected, desired, or
required.
Terrain, drainage, and other physical
features.
Nature of traffic circulation.
Solar access protection.
Desire to minimize public service
costs generated.
Aesthetic.
Protection of natural environment and
features (including wetlands,
drainageways, streams, and the
like) .
A Housing Code (up -to -date) will be adopted
containing reasonable standards for housing
maintenance, occupancy, and historical pre-
servation and restoration programs.
Perhaps more important than the consideration
of various development and environmental
maintenance standards and their listing and
adoption is the process of actual use and
implementation. Standards.as applied to
Stillwater are lengthy, detailed, and rather
technical. Professional and technical staff
assistance will be required to assist the
Planning Commission, City Council, and City
Departments in their proper and effective use
for planning and development purposes.
d) Land Use Plan
The Comprehensive Land Use Plan is presented
in both text and graphic form. The Plan
illustrates graphically the desired relation-
ships between the various land uses and physical
parts of the City. The Land Use Plan has been
developed in as much detail as possible within
the time and budget constraints allowed.
Certain portions of the Land Use Plan proposals
are still somewhat general in nature such as
proposed trail systems, certain recreation
areas, and others.
Greater detail can and should be developed
primarily through the process of developing and
implementing a long -range Capital Improvement
Program and Budget. As financial planning is
developed for at least five years into the
future and other improvements are listed and
programmed for ten years into the future, it
M.
will be necessary to become rather specific in
order to set priorities and to estimate costs
for land acquisition, improvements to be made,
facilities to be constructed and services to be
provided.
Various private land developments as they are
proposed may be evaluated against the general
land use plan proposals and made more specific
based upon the review, amendment, and approval
process involved with obtaining City Permits,
subdivision review, zoning, planned unit de-
velopment approvals, development contracts and
conditional use permits, and the like.
The existing Land Use Plan for Stillwater was
developed in 1961; a review of that plan and
progress made on Plan implementation by the City
reveals the following:
1. 1980 population projections indicated a
1980 population of 17,500 persons (for
combined City and Township); actual
population growth has been somewhat short
of that estimated but within a reasonable
range of accuracy.
2. Projected demands for land use type have
proven rather accurate except that the
amount of land actually developed for housing
has been considerably over the amount
projected; this is probably due to changes
in lot sizes for new housing developments
including apartments as compared to the
older platted area development.
3. Good progress has been made in the
acquisition of public park and playground
land as recommended,.
4. Progress in housing rehabilitation has been
somewhat slower than recommended in the
1961 City Plan.
5. Commercial land development has fallen
somewhat short of that projected but
industrial development acreage has ex-
ceeded projections made in 1961.
6. Historical preservation and restoration
has not maintained a pace recommended
in the earlier City Plan.
7. Very little progress has been made in
acquisition of passive recreation area
including the ravines and trail systems
proposed in earlier years.
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8. Industrial land use recommendations have
been followed and implemented.
9. Commercial uses have been maintained
separated from housing as recommended.
10. Neighborhood structure and definition
has not,been accomplished yet to the degree
recommended.
11. Elementary school construction has not
occurred as projected due partly to
population trends.
12. A new municipal building with fire and
police station has been constructed as
recommended.
13. The institutional cluster immediately
above the bluffs to the south of the
Downtown has been retained and expanded
(includes Old Court House) as suggested
in 1961.
14. Various street changes recommended have
not been made; this is due primarily to
changing traffic pattern needs and the
impracticality of some earlier plan
proposals due to terrain features and other
physical features.
In the current Land Use Plan proposal, many
of the prior Plan recommendations must still be
considered valid and to be pursued further.
Essentially, however, no basic or drastic
changes are recommended except that the
projected "urban service" area should now be
extended out into the Township further than
projected in 1961. This is logical if urban
growth is to continue since much of the urban
expansion (projected in 1961 for 1980) has now
occurred except for land to the northwest of the
present City limits.
Basic Land Use Plan proposals are as follows:
1. The City should consider an annexation
plan that would gradually and in stages
extend the City limits outward to
eventually encompass an area bounded
on the north by Highway No. 96, on the
west by County Road 15 or Manning Avenue,
on the south by Highway 212/36 (minus that
land to remain in City of Oak Park Heights),
and on the east by the St. Croix River.
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This would be sufficient land to
accomodate a potential future population of
between 20,000 and 25,000 persons which
is the desired maximum population con-
sistent with City growth and development
policy.
2. At the present time, the City has very
little land left available and suitable for
housing development; it is recommended
that nearly all of the proposed annexed
land be reserved for a variety of housing
development. Only neighborhood convenience
commercial uses will be needed in annexed
areas. No intensive nor "strip" commercial
or industrial development will be needed or
desirable in the proposed annexation areas
except as designated in the Joint Powers
Area in the Highway 212/36 Corridor Plan.
3. Adequate provisions for commercial and
industrial growth have been provided for
in the CBD and Joint Powers Area.
4. Annexation should be staged in accordance
with logical extension of sanitary sewer
service; this would call for annexation
of land to the northwest (north of County
State Aid Road No. 12) between 1979 and 1985
with land to the southwest (vicinity of Long
Lake) to be annexed between 1985 and 1990.
Growth should be staged in accordance with
housing demand, logical and gradual ex-
tension of sanitary sewer and other City
services, and in accordance with the long -
range Capital Improvement Program and Budget.
A major concern should be to allow growth
only at the rate compatible with the City's
ability to properly finance the required
public improvements and services.
5. Innovation in design should be encouraged
in annexed areas for diversity in housing
types., energy conservation, open space
protection, and quality neighborhood design
and environment. To the extent possible,
new development should be in accordance with
the "River Town" atmosphere and image policy
of the Community; this can be done by
careful and tasteful urban design compli-
mentary even to the historical aspects of
the older neighborhoods.
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6. Wetlands, scenic views, wooded areas,
drainageways, Brown's Creek and other
natural features should be preserved and
protected. Soil types and other physical
features of the proposed annexation areas
are quite different from most parts of the
existing City; planned unit development,
cluster platting, density transfer, and other
newer concepts of land use planning and
development should be encouraged or even
required.
7. Multiple dwellings (2 or more families per
housing structure) should be permitted in a
variety of locations based upon the following
locational criteria:
a) Multiple dwelling zoning shall
not be granted unless in conformity
to the Comprehensive Municipal Plan.
It is noted, however, that all
potential multiple dwelling sites are
not graphically illustrated on the
proposed Land Use Plan due to their
large number and variety of potential
sites; rather, the following criteria
shall be utilized (and included in
the Zoning Regulations) for evaluation
of multiple dwelling development
proposals:
b) Location Standards and Criteria for
Multiple Dwellings
Conversion or expansion of existing
residential buildings. Existing homes
originally designed for one or two
families may be converted and /or ex-
panded to accomodate additional dwelling
units in accordance with appropriate
provisions of this Ordinance. All
such conversions shall require;
1) A determination by the Planning
Commission that the development
use is in conformity to the Compre-
hensive Municipal Plan in terms of
land use, dwelling unit density,
off - street parking provided, and
other characteristics.
2) A Conditional Use Permit is granted;
rezoning may or may not be required
prior to consideration of the
Conditional Use Permit.
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3) The conversion will be in conformity
to the Building, Housing, and
other applicable Codes and Ordi-
nances of the City of Stillwater
and State of Minnesota.
Two - Family Homes - Two - family homes may
be permitted at any location within any
Residential Zoning District except the
"R -A" One- family Zoning District upon
issuance of a Conditional Use Permit except
at locations where the Planning Commission
determines that a two - family home would
be detrimental to the general public
welfare due to inadequate site or building
design, produce adverse economic affects
upon adjacent or nearby one - family homes,
cause congestion in the public streets,
be a safety or health hazard, or otherwise
be a potential public nuisance detrimental
to the general public health, safety,
morals, or general welfare.
Two - family homes may be permitted within
the "R -A" One Family Residential District
only upon issuance of a Conditional Use
Permit which may be granted only under
the following conditions;
1) The Comprehensive Municipal Plan
is first officially amended,
following public hearing, to
designate the specific site and
location as suitable for two -
family home location.
2) It is determined by the Planning
Commission that the site and building
plans are adequate and proper.
3) The site meets the standards and
criteria for location of buildings
containing three (3) or more
dwelling units as hereinafter
follows.
Three or More Family Homes - Buildings
containing three (3) or more dwelling units
may be located in any Residential District
upon issuance of a Conditional Use Permit,
or a Planned Unit Development Permit
providing the location meets the following
criteria as determined by the Planning
Commission;
1) The site must be designated for
multiple dwellings along with the
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permitted density (dwelling units
permitted per acre) on the Compre-
hensive Municipal Plan.
2) The site must be located on a
major street or be located such that
traffic generated need not gain
access via a minor residential
street intended only to provide
access to one or two family homes._
3) The site may be located as a
"buffer" between commercial or
other non - residential uses and one
family homes provided the site and
building design also provides environ-
mental protection for the multiple
family dwellings.
4) Sites should be in close proximity
to public open space such as parks
and playgrounds or provide ample,
private, on -site open space and
recreation areas.
5) A guiding factor shall be the
control of population numbers and
density by location with an evalu-
ation made of the potential resultant
affects upon the cost of governmental
services including the School
District, traffic generated in
relation to the street capacity,
affect upon utility services available,
existing and planned recreation
facilities and services, fire and
police protections, and other density
related factors.
6) Off- street parking shall be located
such that it in no way produces
adverse affects upon adjacent or
nearby residential uses including
affects such as appearance, night-
time lights, noise, safety, fumes,
and the like.
7. The appearance and bulk of the
building shall be in reasonable con-
formity to standards set by existing
planned development in the general
neighborhood area and immediate
vicinity.
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8) The location shall not isolate fewer
than 24 existing or planned one or
two family homes from other one or
two family homes.
9) The location shall not be in close
proximity to General Industrial or
other adverse environmental affects
which might in any gay be detri-
mental to the dwelling unit
occupants in terms of health,
safety, morals, general welfare,
or normal residential amenities
normally expected by residents of
any type residential structure.
In Business Districts
1) Multiple dwellings may be
located within the "CBD" District
above ground floor level upon issu-
ance of a Certificate of Compliance.
2) Multiple dwellings may be located
within the Central Business
District Overlay District only
upon issuance of a Conditional
Use Permit and following a deter-
mination by the Planning Commission
that residential use is in conformity
to the Central Business District
plan portion /element of the Compre-
hensive Municipal Plan.
3) Multiple dwellings may be located
within the Limited Business District
upon issuance of a Conditional
Use Permit.
8. Continued and gradual improvements should
be made in the Downtown (See Central Business
District Plan contained herein).
9. Additional land should be acquired and
developed for both active and passive
recreation (See Protection Open Space and
Park Plan contained herein). As in the past,
it is strongly recommended that steps be
taken towards acquisition of major ravine
areas, certain bluffline areas, and others
for long -range public use and enjoyment.
Major areas of remaining open, vacant land
remaining in older portion of the City
should be acquired as per the Land Use Plan
graphic. This includes at least one large
park site that should be acquired with level
land for a variety of family oriented
(all age groups) activities which would
include active and organized recreation.
10. Residential neighborhoods should be defined
(See neighborhood graphic including names
assigned) and improved in a variety of ways.
Acquisition and development of trails in
the ravines, neighborhood park and playground
acquisition and development, minor traffic
changes, housing rehabilitation (including
historic preservation and restoration),
are some of the needs.
11. Existing neighborhood commercial areas
(which includes some isolated grocery
stores) should be improved and retained
where needed for local convenience needs.
Retention of local neighborhood stores can
be an aid in energy conservation and tie in
with recommended policy of placing greater
emphasis upon pedestrian and non - motorized
vehicle travel within Stillwater. Vacant
service stations and some existing neighbor-
hood commercial in conflict with adjacent
and nearby residential amenities and values
should not, however, be encouraged to
remain. A new "EB" Zoning category is
recommended for use in certain existing
neighborhood commercial areas as a new
"tool" for requiring clean -up, structural
maintenance, and general improvement of
these business areas.
12. Additional development that cannot be
connected to the sanitary sewer system within
the City limits-should not be permitted;
if it is demonstrated that rock formations
or other problems make extension of sewer
to some areas unfeasible, remaining open
land should than be included in the City's
long -range open space acquisition plan.
13. Joint Powers Area (Highway 212/36 Corridor
Area) plans are presented elsewhere in this
Planning Report.
14. Any future expansion of the County Office
Building complex should be planned in co-
operation and coordination with Oak Park Heights
WA
15. Stillwater has a three part housing problem:
a) Very little land remains vacant and
suitable for housing construction
within the present City limits;
annexation to obtain land which can be
provided a full range of urban services
is recommended.
b) A substantial amount of existing
housing is in need of rehabilitation;
in many cases, a simple and inexpensive
coat of fresh paint would suffice but
add greatly to general neighborhood
appearance (See Housing Plan elsewhere
in this planning report).
c) A desire by many for some type of
historic preservation and restoration
program. A large portion of the older
platted areas has been designated as
having potential for such programs
of various types (See discussion else-
where in this planning report).
16. It is proposed that a specific "open space"
corridor which may incorporate pedestrian
and non - motorized circulation is proposed
for City acquisition and development and
public use as appropriate. Such an open
space, lineal corridor would extend through-
out all parts of the Community and include
areas in addition to the ravines so often
suggested in the past. A connected linking
of schools, cemeteries, existing parks,
water bodies, low -wet areas, steep terrain,
bluff lines, and the like is possible and
highly desirable. Public acquisition of the
"missing links ", however, will be required
to implement this "lineal park" and open
space plan.
17. A variety of general and specific plan
suggestions have been incorporated in the
Land Use Plan as recommended by citizens
as part of the Planning Survey Question-
naire (See Appendix to this report). Many
of the suggestions are rather specific and
are to be incorporated into the process of
developing the long -range Capital Improve-
ment Program and Budget.
98
18. Due to a variety of factors including the
proposed annexation plan, it is essential
that planning be highly coordinated with both
Stillwater Township and the City of Oak
Park Heights. Even if further annexation
does not occur, such planning coordination
will be necessary since then the prime
responsibility for accomodating population
growth in the future will rest with units of
government other than the City.
19. The City owns substantial shoreland areas
along the St. Croix River; some of this
shoreland is now leased for private uses.
Eventually, all of this shoreland and
additional land north along the River from
the Downtown should be converted to public
use in accordance with detailed plans and
programs for development and maintenance.
This should not occur until the City has
adequate financial and staff resources to
properly develop and maintain such shoreland
areas. It may be desirable to consider
transfer of recreation shoreland owned by
the City on the Wisconsin side of the River
to some other public agency or unit of
government due to maintenance problems and
costs involved. Provided the Wisconsin
shoreland is retained for public recreational
use, City recreation needs could better be
met by funding the acquisition and develop-
ment of a large, multi - purpose, City Park
with level land closer to the population
to be served.
20. Additional efforts should be made to reduce
the amount of vehicular traffic through some
residential neighborhoods. Due to the
physical features of the Community and
historical growth patterns, Stillwater
has more streets designated as "major" or
thru- streets than normal. While the major
street system works, it does result in
greater automobile traffic in some residential
areas. (See Transportation Plan elsewhere
in this Planning Report). A new street
naming and numbering system should be
considered; in any event, new street signs
are needed in many parts of the City.
21. What, in effect, are land use plan proposals
are also listed as part of the policy and
goals section of this Planning Report.
For example, the policy of maintaining and
improving a "River Town" or "Village"
atmosphere and environment greatly affects
the way in which new private developments
99
should be received and evaluated. If Still-
water is not to be developed as a "typical"
suburban community, then land use platting,
housing types, density considerations,
transportation, and other features must be
considered in approving or recommending changes
in various private land development proposals.
22. With or without annexation of land for
additional housing development, Stillwater
has now reached the age in which existing
commercial, industrial, residential, and
institutional uses require regular.repair
and maintenance and even rehabilitation for
the preservation of the housing stock,
historical qualities desired, and general
Community appearance and economic values.
Perhaps greater attention should be paid to
improvement of existing conditions than
planning for new and expanded growth. Such
a land use policy determination could greatly
affect the final results in developing the
City's long -range Capital Improvement Program
and Budget.
23. It is recommended that population and housing -
density be continued as currently permitted
by existing zoning provisions within the
present corporate limits; this generally
calls for higher densities in and near the
Downtown with a gradual decrease in density
away from the central core area.
If proposed annexation takes place, population
will gradually increase until perhaps the
year 2000 and "peak out" at between 20 and
25 thousand; much depends upon the economy,
densities permitted, and other trends and
conditions. It is estimated, however, that
with annexation, the City's population could
increase by about 2,000 persons per five -
year increment or the addition of not more
than 100 new dwelling units each year until
the peak is reached. It is suggested that
permitted densities in newly annexed areas
could be permitted at a higher gross and
net density than recently permitted in
Croixwood (typical lot sizes) and that
overall densities could appraoch that
permitted in the past in older portions of
the Community. This is due to land avail-
ability, policy of open space preservation,
100
desired new concepts in land planning and
development, and an extension of the existing
"River Town" environment out into some of the
newly developing residential areas. Further,
higher densities can be permitted without
exceeding the maximum desired population of
20 to 25,000 persons. Higher net densities
may be required in some developments to
make retention of open green space financi-
ally and otherwise feasible.
Employment projections are made elsewhere
in this report but are not totally dependent
upon annexation policies; adequate commercial
and industrial areas now exist in the City
and Joint Powers.Area for projected employ-
ment needs. Where the new employees will be
housed, however, is still a question. New
employment should create the need for
additional housing in the vicinity; the bulk
of such housing should be developed in areas
with a full range of urban services and not
scattered about the rural service district
of the St. Croix Valley.
24. Additional comments and suggestions with
respect to land use planning are also
contained in the discussion of existing land
use and land use trends contained else-
where in this planning report.
25. Further "strip" commercial development
beyond that which has already been
developed should not be permitted. The
type of strip commercial and industrial
development now evident along Oasis Avenue
should not be repeated along any other major
road either within the present. City limits
nor within proposed annexation areas which
still have substantial amounts of vacant
land along major routes such as County Road
15, C.S.A.H. No. 12, and Highway No. 96;
Highway No. 96 should retain its designation
as a "scenic route" and development con-
trolled accordingly.
26. In all future developments, vacant lake,
pond, and stream shore land should be
retained in public ownership rather than
developed for private use. Such retention
for public use and enjoyment may also be
101
accomplished via home owners associations,
easement rights, and means other than fee
title ownership by the City.
26. Emphasis should be placed upon completion
(land acquisition and development) of the
various neighborhood parks within the
built -up and older areas of the City.
For example, expansion and development of the
Dutchtown and North Hill Neighborhood play-
grounds should be given a higher priority
than development of a large, new City park.
27. Land use planning in Stillwater within the
foreseeable future will be dealing with two
primary areas:
a) Existing Neighborhoods. Completion of
development or a final "filling in"
and improvements made to existing
features now considered desirable by the
population will call for rather de-
tailed planning with an emphasis upon
rehabilitation, renovation, and con-
servation /preservation.
b) Planning of new development in annexed
areas. This too will call.for de-
tailed planning and analysis due to the
rather complex nature of physical con-
ditions and needs in such areas. In
all cases, professional and technical
staff assistance will be needed for a
complete and adequate plan development
and implementation program.
28. For many years, growth was non - existant or
very slow in the City of Stillwater; a
general environment created many years
ago is considered desirable but in need
of some improvements by many residents and
land owners. The lack of growth and change
contributed to the retention or preservation
of this desired environment. As a "Free
Standing Growth Center" experiencing growth
and development of all types in recent years,
conditions are changing rapidly and desired
environmental conditions can now be preserved,
protected, and gained only by careful,
systematic, and deliberate planning efforts.
Environmental goals cannot be reached if
left to chance; deliberate and active
efforts are now required for historic pre-
servation and other goals in a period of
102
rapid change which is a new set of conditions
not experienced for many years in Stillwater
following 1914 or the turn -of- the - Century
lumber industry era.
2. Protection Open Space
Protection open space are certain natural resources
that require preservation and management. Such
areas include, but are not necessarily limited
to the following:
Water bodies and watercourses, wetlands,
groundwater recharge areas, flood plains,
erodible slopes, forests and woodlands, soils
with severe limitations for urban development,
agricultural production land, and land containing
endangered species or unique .plants and animals.
Various elements of the Stillwater area physical
features have been mapped including soil types,
topography, water bodies, and the like. Still-
water contains a number of open space protection
features which include the scenic St. Croix
River and adjacent bluffs.
Although the City owns a sizable portion of the
St. Croix River shoreland, much of it is leased
for private use and development. Some shoreland,
such as park land on the Wisconsin side of the
River, is only partially utilized for public
purposes and some is in poor condition (trash,
erosion, and other eyesores).
Rock outcroppings and the bluff lines have not
been fully protected in the past and private
development has been allowed even in some areas
where sanitary sewer is not available. Only
portions of lakeshore and stream frontage have
been retained for public use and enjoyment
(example of Long Lake).
It must be noted, however, that soils mapping
indicates a large portion of the existing de-
veloped area is on soil suited for urban
development. Ravine areas are still only
partially developed and still available for
public acquisition and use.
Brown's Creek has been partially developed and
considerable public concern has been expressed
about the future of this trout stream partially
in the City and partially in the Township.
103
Various "protection open space" features of the
Stillwater environment have been retained, not in
public ownership, but still in private ownership
in a vacant state due to the lack of demand for
and difficulties with private development of
such areas. For example, major portions of the
Dutchtown Neighborhood are still vacant due
partially to steep topography, ground rock, and
lack of sanitary sewer; current City policy
against on -site sewage disposal and treatment
systems in the area have further retarded growth.
In effect, then, many of the open space protection
elements of the Stillwater environment still
exist and in reasonably good condition and still
available for permanent preservation and
protection by the City. Renewed development
interest in the Stillwater area, however, may
now place more pressure for improper development
and increases the urgency and need for public
plans and action in these areas. While major
portions of the existing City-are located on
soils suitable for urban development, major
portions of proposed annexation areas are not so
designated. Wetlands, streams, ponds, and other
such features are abundant in the proposed
annexation areas and great care and attention
will be required in the planning process to
protect such areas as housing developments are
proposed. Recent private development plans in
this area have recognized open space protection
features such as the inclusion of a golf course,
pond area retention, and the like as part of the
housing development subdivision plan. Such
considerations must be required in nearly all
potential developments in the proposed annex-
ation area.
New ordinances, procedures, technical staff
review of plans, standards, and planning techni-
ques will be required for full and effective
open space protection as required for newly
developing areas. In addition, more agressive
action is required in older portions of the
Community to assure long -range retention, pro-
tection, and proper management and maintenance of
protection open space areas.
Appropriate codes and ordinances are required as
well as acquisition in some cases. Flood Plain,
Wetlands, Shoreland Protections, On -Site Sewage
Disposal and Treatment, and other Codes are
needed in Stillwater; these are now being
developed and are to be inserted into the recent
codification of City Ordinances. Many require-
ments for open space protection such as drainage,
104
protection of erodible slopes, preservation of
tree cover, soil condition controls on new
development, and the like can and are being
included under "Performance Standards" in the
revised and updated Zoning Code of the City.
Major actions required are as follows:
1. Development, enactment, and enforcement of
codes and ordinances (rules and regulations)
governing wetlands, shoreland management,
on -site disposal systems, and the like.
2. Codes, ordinances, standards, and procedures
should be in accordance with the Open Space
Chapters of the Metropolitan Development
Guide.
3. Existing shoreland along the St. Croix now
owned by-the City should gradually be made
available for public use and enjoyment plus
some additional shoreland north of the
Downtown. This process should occur as
enabled by financial and staffing needs can
be provided by the City.
4. Bluff lines and erodible slopes should be
protected from additional development and
improvements made where specific problems now
exist. Control of building heights and other
features of protecting the "visual aspects
of the skyline" as viewed from the River water
should be given additional study to develop
appropriate design standards.
5. Ravines, wetlands, steep slope areas, and
the like indicated on the land use plan
should be acquired (fee title, public
easement, contract agreement, or other
means). Specific and detailed plans for
their use and protection should be developed.
6. Brown's Creek should be protected from
further development via zoning, subdivision,
and other appropriate codes and ordinances.
All drainageways can be preserved, protected,
and properly managed via appropriate code
and ordinance provisions which are now being
developed and to be included in the plan
implementation portion of the Comprehensive
City Plan for Stillwater.
7. Special care must be taken in the areas
proposed for annexation due to the diverse
and sensitive physical characteristics
105
present in that area. In many cases, planned
unit developments (PUD) and other special
zoning techniques should be encouraged or
even required to properly design and develop
the areas with due and proper regard to
Protection Open Space elements; such a
procedure has advantages for both private
and public interests. Design flexibility
and cost savings can be provided the developer
while the City can exercise maximum control
over required plan elements, including long -
terml�use and maintenance. Cost savings can
also accrueto the City in addition to
environmental quality gains.
8. As development occurs in newly annexed areas,
maximum reliance should be placed upon
retention of storm water within the develop-
ments rather than transmitted "downstream"
via watercourses, storm sewers, or other
means; there are both aesthetic and more
practical advantages to be gained.
9. Historical sites may be included in the
protection open space considerations based
upon Community concensus as to need and
desirability.
10. Greater use of public easements should be
exercised in the future; many aspects of
protection open space can be adequately
covered via public easement rights rather
than public ownership of the land area
involved. For example, ponding easements
can be utilized to retain storm water even
if the land remains in private ownership;
the City, however, controls the use and
maintenance requirements as established and
enforced rather than the actual fee title
owner. This procedure works also in shore -
land protection, drainage, and other open
space elements. Also available are agree-
ments with home owner's associations and
others with similar arrangements possible
in the general public interest.
11. All DNR and other State, Federal, and Metro-
politan requirements shall be incorporated
into ordinance form and procedural and
administrative programs.
3. Joint Powers Area
The Joint Powers Area consists of land along and
north of Highway 36 and 212; it consists primarily
of commercial and industrial land which is located
partially in the City and partially in the Town-
ship. Planning and zoning is under jurisdiction
106
of both the City and Township, administered by
the Joint Powers Committee with staff assistance
by the Washington County Planning Department.
Zoning, subdivision, and other planning codes
utilized are those of the Washington County
Development Code rather than local ordinances.
This general area contains the Stillwater
Industrial Park now under construction as well
as substantial new commercial development. The
area has developed in accordance with the 1961
Stillwater Area Comprehensive Plan. Detailed
development plans have been prepared and all
construction has been in accordance with such
plans. Professional planners, engineers (civil
and traffic), attorneys, and other staff assis-
tance is utilized in all aspects of planning,
development, and inspection.
Plans For The Joint Powers Area.As Amended
Are As Follows:
Joint Powers Committee, City and Township of
Stillwater, Washington County, Minnesota
Highways 212/36 Corridor Study
I. Introduction
During 1978, a study was conducted of growth
trends, existing and potential traffic problems,
and planning needs for the future. Major
portions of the study are presented on various
plan maps which accompany this summary; as such
this summary is in addition to the maps which
contain recommendations and other information
as part of this report.
A. Background
In August of 1977, the Joint Powers Committee
requested that the County Planning Department
retain a consultant to prepare a study of
commercial development along the Highway 212
corridor. Work was started early in 1978 with
periodic progress reports provided at regular
meetings of the Joint Powers Committee.
Some years earlier, some rather general studies
and plans had been prepared by the City of
Stillwater, the Central Washington County
Planning Commission (now disbanded and replaced
by the Washington County Planning Commission)
and the Washington County Planning Department.
107
In recent years, various concerns have been
expressed about certain aspects of development
along Highways 212 and 36 including the rapid
rate, types of land uses, traffic and accident
problems, utilities, drainage control, and general
environmental conditions. A study and plan has
been needed to address in greater detail in
an up -to -date fashion these various issues and
concerns.
B. Purpose and Scope
The purpose of this summary report and the
accompanying plan maps and notations is to provide
a plan and guidelines (standards and criteria)
for properly controlling growth along the Highway
within the boundary of the Joint Powers Committee's
jurisdiction (see maps).
Originally, the study was to focus attention on
traffic problems; both the scope and geographic
area of the study has been expanded based upon
early studies which indicated the following:
1. Traffic and parking problems are a function
of the various land uses which develop and
generate the demand and pattern of traffic
circulation and access and parking needs;
land use planning in conjunction with
planning for the resultant traffic needs is
the most logical, efficient, and economical
approach. Proper zoning as a major tool for
land use plan implementation, then, follows
in logical sequence.
2. It was determined' early in the study that
proper traffic and land use planning within
the Joint Powers Committee Area should be
highly related to adjacent and nearby areas
in Stillwater City and Township, Baytown
Township, and Oak Park Heights. Proper
planning and development controls only
within the Joint Powers Committee area of
jurisdiction would be only of minimal value
if adjacent and nearby areas are not
developed in some coordinated fashion to
assure that the total area (see maps)
develops into a reasonable, safe, and
satisfactory environment. The study and
planning was then expanded to include a
larger area; plan recommendations for
adjacent and nearby areas of four communities
(City and Township of Stillwater, Baytown
Township, and City of Oak Park Heights) are
included herein. Plans as developed herein
for these adjacent and nearby areas are to
be presented to the affected communities as
suggestions which may or may not be utilized
108
in whole or in part depending upon local
decisions. The plans are offered for
consideration in the current up- dating
of all Comprehensive Municipal Plans as
required by State Statutes (Metropolitan Land
Planning Act). In any event, coordination of
planning and control of development is
essential among the affected communities
if the total study area is to function properly
in terms of traffic circulation, visual
appearance, and general environmental
efficiency.
The scope and degree of detail is considered
adequate to properly review individual private
development plans as they are proposed and to
make public decisions as to their adequacy and
conformity to the Corridor Plan in considerable
detail; for example, recommendations are contained
herein for access drive locations and types,
timing-of road construction needs, location and
types of land use, and the like. It is suggested
that no greater detail is required for public
planning at this time; the existing plans should
be adequate for proper use by private developers
and the responsible public bodies in proposing
and guiding development.
As presented, the plans herein are considerably
more detailed than normally found or even re-
quired for Comprehensive City Plans. It is
suggested, however, that a composite plan for
utility service (water, sanitary sewer, and
surface water drainage) be compiled and coordinated
as they become available from the four affected
and included communities.
C.
Summary of Findings
1.
Existing conditions vary greatly within
the study area and range from poor
to excellent.
2.
In some areas, past development has
been
less than ideal although more recent
develop-
ments have been of a higher quality
and rather
well planned.
3.
Traffic and other "problems" cannot
be
considered as severe at this point
in time
although a continuation of certain
past
development trends could well result
in
serious traffic, visual, and other
environ-
mental problems.
109
4. The study area is an important entrance to
the St. Croix Valley and nearby communities;
it would be in the general public interest
for this area to be free of traffic hazards
and congestion and present the best possible
visual impression or "public image" for
residents and visitors alike.
5. There is still time with large amounts of
vacant land yet to be developed to properly
guide and control development in such a
manner as to produce and maintain a satis-
factory environment.
6. In the past, existing plans have been too
general and lacking in coordination of
specifics; the time has now come for agree-
ment on and coordination of detailed plans
for completing development of the study area
if major traffic and other problems are to
be avoided in the future.
D. Summary of Recommendations
1. First, a consensus should be gained from the
four involved communities (Stillwater City,
Stillwater Township, Baytown and Oak Park
Heights) on a coordinated development plan
for the entire study area (see maps). If
that area within the jurisdiction of the
Joint Powers Committee is to be planned and
developed alone without coordination with
some over -all plan for the total study area,
proper and safe traffic flow and other en-
vironmental conditions would be left to
chance rather than design for good results.
2. The entire study area should be planned as
part of a "free- standing growth center"
of several communities rather than a
"suburb" of the central cities.
3. The goal should be for a safe, efficient, and
visually pleasing maj,or entrance into the
St. Croix Valley and the nearby communities.
4. Further development
should be guided and
specific plans such
recommended herein.
of the total study area
controlled by rather
as contained and
5. It is essential that proper land use planning
be associated with planning for traffic since
110
they are inter - related; traffic is generated
by land uses and the provision of traffic
circulation systems for uncontrolled, un-
planned land use has, historically, proven
not economically nor otherwise practicable
nor feasible.
6. The study area can accomodate a large amount
of additional non - residential development;
it is suggested, however, that reasonable
controls be placed upon development within
the study area so as to avoid undue adverse
affects upon existing business and industry
in the general area.
7. Major changes in planning and development are
not recommended; rather, a variety of rather
specific and localized planning suggestions
are included which, in total, should result
in satisfactory environmental conditions as
the area continues to develop and eventual
land saturation is reached.
8. The plans are presented on a series of maps
and also.in text form; as each separate
development is proposed, it should be compared
as appropriate to all of the plan maps and
text since a wide variety of plan considerations_
are involved. No single plan map contained
herein contains all of the planning consid-
erations involved.
II. Existing Conditions
Existing environmental conditions within the total
study area vary greatly and range from very good
to very poor and from vacant land to areas of
intense commercial development. A wide variety
of land uses are present with some areas containing
a mixture of uses. Virtually all types of urban
land uses are present plus agricultural uses
such as sod farming and landscape nursery stock.
With such variety and mixture, intensity of use
also varies with large variation in traffic and
parking generation. Some of the more significant
existing conditions are as follows:
1. Perhaps the most significant existing
condition is that, despite some less -than-
desirable past development, there is still
time and opportunity to plan and guide future
growth and development in such a manner as
to assure a reasonable and satisfactory
environment when the area becomes fully
developed in future years.
111
2. A considerable amount of vacant land remains
to be developed and opportunities still
exist to assure a good land use pattern and
an adequate traffic circulation system.
3. Recent developments in and near the Still-
water Industrial Park are of good to ex-
cellent quality; these developments should
tend to attract other developments of similar
quality. Once a high quality trend has been
well established it tends to continue by a
show of economic and environmental quality,
confidence, and long -range stability.
4. The continued exercise of adequate and proper
public regulations and guides to growth can
help assure against a repeat of some past,
lower quality development. Some examples
of past, low quality development are:.
a) In some areas, "strip" development
of fast food, drive -in restaurants
located on narrow service drives is
both a visual and traffic hazard
problem although still limited in
magnitude; this situation can be
controlled in future development
by utilization of the plans and
guidelines contained herein.
b) The mixture of commercial and in-
dustrial type development along Oasis
Avenue is also of mixed quality in
terms of proper access, building
appearance, landscaping, parking,
property maintenance, and the like.
As development proceeds in other areas,
the proper application of public standards
and controls should assure a higher "average"
quality of development without sharp contrasts
and variations between high and low quality
development in such close proximity. Ex-
perience throughout the Metropolitan Area
demonstrates that the "average" level of
quality tends to set the pattern for com-
pleting development of commercial and
industrial areas. It is also noted that the
rate of development is not adversely affected
by the imposition of high, yet reasonable,
standards for commercial and industrial
development; on the contrary, low quality
non - residential developments tend to peak
prior to full development of all available
112
land followed by lower interest in the
"fill -in" completion of development on
remaining vacant land parcels. Numerous
examples of this can be seen in the suburban
areas north of Minneapolis.
5,: Existing traffic conditions, while not
ideal, cannot be described as serious in
terms of hazardous conditions or congestion.
Less - than - desirable traffic conditions
noted are as follows:
a) Narrow service drives along Highway
No. 212 in some areas with too frequent
access drives into adjacent commercial
lots. In most instances, service drive
entrance points are too close to High-
way 212 with inadequate turning and
maneuvering space. Some areas have
too many "drive -in" type business uses
closely spaced; a continuation of this
type of development would lead to
serious traffic safety and congestion
problems.
b) Except at signalized intersections,
traffic movements north and south across
Highway No. 212 are difficult and
hazards will increase with future in-
creases in traffic volume. In some
cases, north /south traffic movements
across Highway No. 212 should be elim-
inated while other intersections must
eventually be signalized and otherwise
improved.
c) The local street system south of Highway
No. 212 is generally inadequate with
east /west movements impaired by the lack
of through streets forcing traffic
onto the Highway No. 212 service road
which is too narrow for higher volumes
and safe and efficient movements of
traffic.
d) In some areas, the safe and efficient
movement of traffic is impaired by too
frequent and improper access drives
serving adjacent land developments.
Many access points to adjacent, parallel
service roads along Highway No. 212 are
improperly designed for safe and efficient
ingress and egress.
113
6. Off- street parking is generally adequate in
terms of spaces provided although numerous
examples exist of less- than -ideal conditions
as follows:
a) Poor access drives including too
frequent access drives onto the streets.
b) Poor appearance including lack of land-
scaping and even paving in some in-
stances.
c) Lack of space markings and inadequate
stall arrangements.
Care must be taken in future development to
assure against the need for over -flow
parking onto the streets - especially into
adjacent and nearby residential streets.
7. Some instances are present where inadequate
provisions have been made to screen and
buffer nearby homes from adverse visual,
noise, and other adverse affects of non-
residential development.
8. Far too little consideration has been given
to planning for existing and future ped-
estrian circulation.
9. In most areas, past developments have not
incorporated public open space, parks,
trails, and the like in non - residential
areas; these should be considered in the
future - especially in relation to office
type uses and mutual enjoyment by employees
and nearby residents.
10. The mixture of land uses in some areas is
undesirable although this condition has not
yet reached a point where large scale, serious
use conflicts have become a problem. Future
developments should be planned and controlled
to minimize conflicts between various uses -
especially between residential and non-
residential uses.
11. This area is a major entrance to the scenic
St. Croix Valley and nearby residential
communities; as such, its visual impression
is important to the general public. Continued
development as a "strip" characterized by
fast -food drive -ins, sign clutter, flashing
lights, and other less- than - desirable visual
conditions cannot be a credit to the public
"image" desired by the local population nor
visitors. Plans presented herein are
114
intended to be a guide for continued and
substantial non - residential growth without
producing a poor visual impact nor undue
traffic hazards and congestion.
III. Policy, Goals, Standards
To the extent possible, the various plan
recommendations are contained as notes on the
various plan /study maps attached to and made
part of this report. It is important, however,
to consider overall goals and policy for develop-
ment and to set certain minimum standards as a
guide to future growth and development.
Some suggested goals important to the general
public welfare are as follows:
1. Develop a plan for the entire study area
that can be agreed upon, coordinated, and
implemented by all of the local communities
and other public bodies concerned and involved.
It will: .,,.not be possible to continue develop-
ment of the total area and maintain a proper
environment if all concerned do not cooperate
and coordinate all development. It is
quite clear that efficient and safe traffic
circulation, a good visual impression,
adequate parking, and other desired qualities
cannot be fully attained without cooperation
and coordination by all involved.
2. When fully developed, the entire area along
Highways 36 and 212 from County Road 15 to
the St. Croix River should be a visual asset
to the adjacent communities with safe and
efficient movement of traffic.
3. Non - residential developments should not be in
conflict with adjacent or nearby residential
uses.
4. Non - residential developments of high quality
should be encouraged along with existing
commercial and industrial developments in
the vicinity of Stillwater City and Town-
ship, Oak Park Heights, and Baytown.
5. This general area should be considered as a
"Free Standing Growth Center" providing the
full range of urban services for residents
and business alike. It should not be planned
and developed as a typical "suburban" area
to the central citites; it must be assumed
at this time that very little urban density
type growth will occur in the foreseeable
115
future between County Road 15 and Pine Springs
to the west along Highway 36. As such, local
employment, local traffic circulation, and
other aspects of the environment should be
planned and developed much as if the location
were at a much greater distance from the two
central cities.
6. Non - residential developments should be required
to donate land or cash in- lieu -of land, for
parks, natural open space, public easements,
streets, storm water ponding areas, and other
public purposes just as residential develop-
ments and as provided for by State Statutes
and local law.
7. In general, the latest revised version of the.
Washington County Development Code (Zoning,
Shoreland Protection, etc.) should be
utilized in reviewing and approval of all
proposed development's. Reasonable require-
ments should be set for quality in develop-
ment such as building appearance, landscaping,
sign controls, lighting, parking lot paving
and beautification, and the like. In order
to assure the finest possible environmental
results, each site and building plan should
be carefully reviewed prior to the issuance
of any building, grading, or other develop-
ment permits.
8. Even after development, public controls should
be exercised to assure proper building and
grounds maintenance.
NOTES IN ADDITION TO THOSE CONTAINED ON THE
VARIOUS PLAN MAPS
Land Use /Traffic Guides
*Periodic traffic counts shall be taken as a
guide to staging street construction and up-
grading of intersections. When traffic volumes
approach projected volumes and /or practical
working capacities, zoning should be studied
for possible reduction needs in land use inten-
sities (traffic generation) and types.
*For a proper land use mix, exceptions should not
be made to existing zoning without careful
study for affects upon traffic circulation and
area amenities.
*Except for "drive -in" (high traffic generators)
business use, no restrictions should be placed
upon the number of shopping centers or other
individual type uses for economic competition
116
reasons except as follows:
If the total "Corridor" Area development
land use pattern becomes such that it con-
stitutes undue competition for existing
commercial areas within the trade area, then
it may be proper and in the general public
interest to begin restricting the number of
certain type commercial outlets. The purpose
of this land use policy shall be in recogni-
tion of the need to preserve older, existing
development areas in a sound physical and
economic condition. Older commercial areas
will, however, be expected to take certain
"self help" measures as required normally
to maintain their fair share of the commer-
cial market in the general trade area.
*Traffic is a function of land use which generates
the volumes on the various roads provided; therefore,
land use control is an important factor in traffic
planning. Projected traffic volumes are based upon
"typical" or average land uses which should be ex-
pected and approved. Deviations from "normal"
such as permission of many fast -food drive -ins
or other high traffic generation commercial uses
will greatly affect both the volumes and traffic
circulation patterns.
Just as increased traffic volumes can serve as
the signal for new street improvement needs, such
volumes can also serve as the signal to begin
restricting further the types of land uses in
various locatins generating the traffic flow.
*The logical staging of utilities such as sewer,
water, and storm water drainage facilities is
also a factor in the proper staging of land
development and street construction. Within
the next few months, a map showing the location
of all utilities in and near the total "Corridor"
study area could be developed for use in planning
since up -to -date utility maps are now available
for both Stillwater and Oak Park Heights.
*It will be necessary to take periodic traffic
counts both within the study area and the sur-
rounding area to obtain an accurate picture of
traffic volumes and patterns as they develop and
change over the years. As noted herein, however,
volume counts alone will not clearly
117
indicate staging and improvement needs since
judgment factors must be involved having to do
with a balance between driver satisfaction and
convenience and the public ability to pay for
various road improvements.
*Following completion of several more developments
in the Industrial Park Area, a "trip directional"
survey should be taken of employees and customers
to indicate trip origins and destinations; such
a survey should be up -dated on a periodic basis
as the total Stillwater area continues to
develop. At the present time, it is assumed
that the Stillwater area will be developed as a
"free standing growth center" with limitations
on additional housing areas that will be
developed between County Road 15 and the City
of Pine Springs; if so, Stillwater will become
less of a "bedroom" community to the central
cities which will affect the amount of traffic
moving between the study area and the City of
St. Paul /Minneapolis Area. How the total area
develops will affect, for example, the home
bound directional flow of employees from the
Joint Powers Committee Study Area. In turn,
this will affect the nature and staging of
traffic control measures.
*All roads within the Industrial Park and others
which serve commercial and industrial develop-
ment should be developed at proper cross-
section standards which call for a pavement
width adequate to accomodate four (4) moving
lanes of traffic at peak volume hours. Pave-
ment width then should be from 44 to 48 feet
in width with concrete curb and gutter.
*Properly developed, streets within the Industrial
Park will be of a higher standard than some
existing major roads such as C.S.A.H. No. 5
which, at present, has only two lanes for
traffic plus a gravel shoulder. Existing roads
outside of the Industrial Park should be up-
graded to four (4) moving lanes for traffic
based upon similar criteria for staging of road
improvements within the Industrial Park. An
added factor should be involved which is called
the "level of service concept" which involves
various degrees of traffic congestion. Assuming
a traffic signal at an intersection, the degree
of difficulty for traffic moving through the
light changes is a better measurement of
"congestion" than numerical volume counts.
118
Level of Service
A All traffic moves through
the signal on a change of
the light.
B & C 10 to 30% of the time at
peak hours, some vehicles
fail to get through on
one signal change.
D* Above percentage increases
to 70 %.
E Above percentage increases
to 85 %.
F Service becomes intolerable
with traffic backed up for
long periods of time.
*Level of service which signals a need
for some type of improvement such as
construction of an alternate route or
pavement widening.
*Traffic Trip Generation. The volume of traffic
on any given road is a direct function of land
uses (type, intensity, location) which generate
the traffic movements. From a traffic operations
standpoint, the peak hour (morning and evening)
trip generation is the most significant factor.
The total number of daily trips is a more
general figure important from the standpoint of
air pollution, noise, road surface deterioration,
etc.
Vehicle trips generated by various land uses
have great variety as noted on the material
contained herein; for example, an acre of
residential development will generate less than
half the number of trips generated by an acre
of industrial development. A drive -in
restaurant will generate five times more traffic
than many other types of commercial activity.
It is important, then, to consider the combined
effects of the various land uses which will be
developed in the study area. Care must be taken
to assure that permitted land uses will not
generate more traffic than can be safely and
efficiently handled by the area's road system.
Trip generation rates have been developed for
most land uses to aid in the development
planning of urban land. The most recent
119
authoritative source for trip end generation
rates is "Trip Generation" an informational
report published by the Institute of Trans-
portation Engineers. Such information is
included herein and application made to planning
of the Stillwater Industrial Park related to
land use intensity, location, type and timing
of road improvements, and the like.
*On the various plan maps made part of this
report, suggestions are made on several aspects
of land use and traffic planning such as proper
spacing of access drives, limitations to be
placed upon the number of drive -in business
establishments, and the like. As each new and
specific development is proposed, it can be
compared to the various plan recommendations in
the public review process for its adequacy and
conformity. It is important that as few
deviations from the plan as possible be allowed
since the sum total of all the various individual
developments will determine the final environ-
mental conditions including traffic circulation
efficiency and safety.
120
r
N
r
TYPE OF LAND USE TRIP ENDS
*Average Daily Trip Generation (ADT)
By Land Use Development Types
Per Employee
Per MGFA*
Per Acre
Industrial
3.0
5.43
59.9
General Light Industrial
3.2
5.46
52.4
Industrial Park
4.14
8.34
68.1
Manufacturing
2.17
4.10
53.6
Warehousing
4.26
5.01
62.0
Residential, S.F. Detached
2.5 /res
10.0 /du
25.7
Residential, Apartment
2.8 /res
6.1 /du
22.2
Residential, Condominium
5.6 /du
Residential, Mobile Home
2.5 /res
5.4 /du
Residential, Retirement Com.
3.3 /du
Motel
10.58
Elementary School
0.51 /student
High School
1.22 /student
University
2.41 /strident
Hospital
12..16 /bed
Nursing Home
2.7 /bed
General Office
3.46
11.69
Medical Office
75.0
Government Office
12.0
68.93
Office Park
3.33
20.65
Research Center
3.11
9.33
Shopping Center:
0 -50 MGFA
115.8
50 -100 MGFA
79.1
200 -300 MGFA
49.9
500 -1000 MGFA
34.5
Over 1250 MGFA
26.5
Discount Store
64.6
Quality Restaurant
56.3
Drive -In Restaurant (fast food)
553.0
Supermarket
125.5
Convenience Market
322.6
*Average Daily Trip Generation (ADT)
By Land Use Development Types
A. LIMITED ACCESS
Be THOROUGHFARE
INDEX NO.
SUBJECT:
snow
(FREEWAY or EXPRESSWAY) ; ill ng
idiee hnea —.., A.......
5.8122
STANDAR[
Streets
walk r••+arl• w.lk huwldw high volume
i
URBANE - "'" `- RURAL ». �. I . .,......
d a' 1Y tY d ts' 12' a' d
t0' MINIMUM RO
(10 - iZ dmaind) (100' dmelr.d)
business walk
frsnleym•
pedestrian ImN turn
lane loam
�
walk
�hsm d
low volume
1
URBAN
RURAL 1 ". �
.s.,.l....w ..
r , r
rr d ,s'
s' t
12' d
I IV •' , 12'
r ts'
6W MINIMUM RAVA
W MIN M RO.W
ery w residential
v lo
bd MINIMUM R.OLML
alternate
1100 - 110 destrad)
t ik l
to'
C. COLLECTOR
MINIMUM ROHR
1 r. Wk
parking
or
ermvin, weilr i
a'YSObIo
shoulder
ia► \
I�ilrireseM
walk
URBAN �M.
' i
RURAL
high density 6'
12'
12' t t2'
14'
7d MINIMUM R.,O:VK
66 1 1 R
tlt
low density ' 7'
i 1 1 ,Y i
,0" i 7' i
D. MINOR STREET
URBAN
medium and
V 30V
r s'
RURAL
.
......
density
6W MINIMUM RAVA
ery w residential
v lo
alternate
variable 2t- ad
t ik l
to'
2d 10r
MINIMUM ROHR
•Pti•nai
URBAN �... �,.... ...! .a ....
low density
SW MINIMUM
E. BUSINESS or INDUSTRIAL'
SERVICE
s-
bar - ao' LO.W 122
IV. Development Plan
The suggested development plan for the study
area is contained for the most part on a series
of plan maps attached to and made part of this
report; they are as follows:
*Base Map of Total Study Area.
*Map of Existing Development Patterns.
*Highway 212.36 Corridor Development
Plan (large scale).
*Existing Corporate Limits.
*Existing Zoning.
*Existing Zoning Changes.
*Planning for Traffic Circulation.
These maps and the written text constitute the
plan for Corridor development as recommended
by the Planning Consultants. They must be
considered and utilized in total as none stands
alone as the only and complete guide to proper
development of the study area.
Considerable detail has gone into planning for
the Stillwater Industrial Park due to current
state and interest in development of that
portion of the study area. Projections of
traffic generation have been made and noted
on the plan maps based upon the following
suggested mixture of land uses to be permitted:
Percentage Development by Land Area Maximum
Allowed
Residential, Institutional
(if any proposed) 15%
Office
30 -40%
Light Manufacturing and Warehousing
(with care not to permit excessive
amount of truck movement needs) 50%
Retail, Personal Service, Restaurants,
Miscellaneous Commercial 10%
Uses Requiring Conditional Use
Permits such as Drive -Ins 5%
It is difficult to forecast traffic generation
in industrial parks due to the wide variations in
specific type uses; utilization of the above guide-
lines, however, would result in a reasonable land us
mixture consistent with traffic and other plans
now developed.
123
No problem will result from multi -story build-
ings if controlled by limitations imposed by
adequate provision of open, off - street park-
ing spaces. Unforeseen high traffic generation
would occur only if ramp parking was utilized
to provide parking for multi -story office or
other buildings.
As recommended herein, the best guard against
traffic volumes in excess to the planned road
capacity.is that of periodic volume counts
related to the current state of land development.
If an imbalance occurs, it will be necessary
to make further road improvements or to adjust
land planning intensity standards for appli-
cation to the remaining vacant land area to be
developed.
Constant monitoring of existing and anticipated
conditions is necessary to avoid undue traffic
congestion, safety or other problems. For
example, buildings converted to another use may
increase or decrease traffic generation; some
uses may be similar but have differing traffic
generation factors (retail to the public vs.
selective or limited to jobbers, check -in
station for salesmen vs. desk employees in
offices, etc.).
Utilization of the various plan suggestions and
guidelines contained herein should result in
a reasonably safe and efficient traffic flow
as well as a desirable total environment for the
total study area. Proper vigilance and exer-
cise of public controls over development
should result in satisfactory development without
any major changes to existing zoning.
While certain changes to existing zoning are
recommended (see map), they are not extensive
nor should they present any real problems for
the various landowners involved. All such
zoning changes should be given further study,
fully discussed with the owners and adjacent
residents and owners, and fully presented and
reviewed at public hearings required by law.
The plans presented herein are in considerable
detail and, when taken together, should be
adequate to properly guide development in the
study area within the foreseeable future. The
plans should, however, be amended and augmented
124
from time -to -time as may be required by develop-
ment trends, changing conditions, and experience
with plan implementation.
Due to the degree of detail and scope of the
suggested development plans, all recommendations
that may affect specific parcels of land are
not contained on any one, single plan map.
Proper use of the plans requires their use in
combination to include all possible aspects of
land use and traffic planning.
Various development plans by private landowners
have been incorporated into the Corridor Plans
contained herein as appropriate. These may be
augmented and amended as development proceeds
within the study area.
V. Plan Implementation
At this time, the plans presented herein are
recommendations to the Joint Powers Committee
from the Planning and Traffic Consultants and
the Washington County Planning Department
Staff. The plans have not been officially
approved nor endorsed by the Joint Powers
Committee.
Note is taken that the plans extend beyond the
boundaries of the Joint Powers jurisdiction
since, in the opinion of the Consultants, total
area development should be coordinated if traffic,
general environmental, and other goals are to
be attained.
As a matter of procedure, the following is
suggested:
1. Plans as recommended by the Consultants
should be forwarded to the various
communities and other governmental bodies
and agencies for their comments and
suggestions.
2. Following receipt of comments and suggestions,
a public hearing should be conducted by
the Joint Powers Committee on only that
portion of the plan contained within their
area of jurisdiction (see map).
3. The plan for the Joint Powers Area may then
be officially adopted as is or amended or
rejected.
4. The four local communities may utilize the
plans as they may desire; hopefully, however,
a concens•us can be gained on some type of
125
coordinated plan for the total study area.
5. The local communities may, if they so
desire, incorporate the plans into their
total community development plans now being
up -dated as per requirements of the Metro-
politan Land Planning Act and appropriately
reviewed by the Metropolitan Council as
required by law.
Zoning changes may be made as desired following
plan adoption by the various governmental
units having jurisdiction over the various land
parcel areas. Public improvements may be made
in accordance with plan suggestions and included
in the long -range capital improvement programs
of the various communities involved.
Site and building plan review prior to the
issuance of building and other development
permits will be important. Note must be taken
on the cummulative affects of developments as
they occur with adjustments made as necessary
and desirable in the over -all plans. Cooperation
and coordination among the various governmental
bodies involved will be essential to proper area
development.
Some suggested procedures for obtaining public
open space or land for other public purposes
within the study area are included herein.
More specific policies have yet to be developed,
however, concerning proper amounts for various
uses such as storm water ponding, parks, trails,
natural open space, and the..like.
Public Purpose Land Use
Parks and other forms of "open space" such as
storm water storage ponds, pedestrian trails,
may be reserved and obtained in a variety of
ways:
1. Dedication
Current Minnesota Statutes allow for the re-
quired dedication of land or cash in- lieu -of
land for open space (public) in commercial and
industrial as well as residential subdivisions.
State Statutes do not give specific guidelines
as to the amount and leave this to local govern-
ment judgment as to what is "reasonable" and
"proper" in the general public interest. Local
communities vary greatly in policy with respect
to dedication amount requirements but these
126
do in general, range
the cash equivalent.
partial credit for s
swamps, severe slope
areas that cannot be
recreation uses.
between 5 to 10% in land or
Some communities give only
torm water ponding areas,
areas, and other such
"developed" for
In any event, land or cash in- lieu -of land
dedication can be required in all subdivisions
within the jurisdiction of the Joint Powers
Committee. Where land is not desired, cash
requirements could be earmarked for purchase of
land elsewhere in the area.
A dedication policy requirement of approximately
7% may be appropriate for commercial and in-
dustrial land with 10% a consideration for
residential property subdivisions. In specific
cases where 7% of the subdivided land is not
from other areas may be used to purchase the
additional land required over and above the land
dedication.
2. Official Ma
Land may be designated for public use by
designation on an "Official Map" following public
hearing; following this procedure, said designated
land may not be privately developed until after
a period of time in which the City or other
public body must make reasonable efforts to
purchase or otherwise obtain the land for the
public purpose intended. A period of six (6)
months following the private owner's announced
intention to develop must be provided for the
appropriate public body to "take steps towards"
purchase of the land.
3. Administrative
Reasonable requirements and conditions may be
attached to land in the subdivision planning and
approval process and in the review and approval
process under zoning and administration of building
and other permits. For example, it may be
reasonable to require a walking trail along with
others for utilities, streets, drainage, and
the like.
It is normal to require screening in the form of
plantings, fencing, added building setbacks, and
the like between residential uses and adjacent
commercial and industrial areas. Such areas may
or may not also include a public purpose easement.
127
The building and grading permit and site plan
review process may also include conditions on
slope protection, preservation of wooded and
scenic areas, setbacks, location of buildings .
and other structures and the like.
4. Combinations
Within the planning area of the Joint Powers
Committee, a combination of methods may be
utilized to obtain fee title or less- than -fee-
title for public use for certain uses such as
streets, utilities, storm water ponding and
the like. Various areas have also been designated
for other potential future public purposes and
uses such as pedestrian trails and maintenance
access to storm water storage ponds.
Where the exact location of such future public
needs is known, these may be designated on an
"official Map" for future acquisition via
easement, purchase, dedication, zoning require-
ment, or other method or combination of methods.
For example, a parcel of land may be desired for
public purposes which may include screening of
homes, a public pedestrian trail, prevention of
erosion, preservation of trees, placement of
utilities, and others; all or a portion of the
desired land may be obtained elsewhere in the
planning study area.
If the affected land is not subdivided and thus
not affording the public opportunity to require
dedication, private development of the affected
parcel may be held up via provisions of the
"official map act ", normal zoning and building
permit requirements, and the like in various
combinations.
Even without public acquisition or use easements,
certain public purposes can be served, such as
the screening of homes from the adverse affects
of adjacent and nearby commercial and industrial
uses by the requirement of added building setback
lines, restrictions on grading, landscaping
requirements, and others affecting the use and
appearance of private land.
In summary, a rather wide variety of methods is
available under Minnesota law to serve the public
interest in the use of land.
128
4. Housing
Stillwater housing plans and policy are based
upon a study of past trends, existing conditions,
and the Housing Chapter of the Metropolitan
Development Guide (as amended and including
proposed housing plan revisions from the Metro-
politan Council dated August 31, 1979). In
recent years, Stillwater has ranked high among
all communities by the Metropolitan Council for
funding approval of subsidized housing for low
and moderate income groups and the elderly;
such housing has been provided in the past,
units are currently under construction, and
development projects are currently proposed.
As noted in the Housing Inventory and Analysis,
Stillwater has several major and even rather
unique housing problems:
a)
Insufficient Land
While adequate vacant land exists for
various non - residential uses, only about
40 lots remain vacant and suitable for
housing development. One result has been a
subsidized housing project proposed for
development on land zoned for commercial and
industrial use needed to bolster the local
economy, tax base, and local employment
opportunities. The lack of suitable and
buildable land for housing of all types gives
cause for concern in properly housing new
local employment, accomodating new housing
in the Urban Service District, providing for
population growth in the "Free Standing
Growth Center ", and future diversity (types,
location, density, price) in housing.
Allowance of conversions, (more dwelling
units in existing structures), higher densities
on existing vacant land, clearance of
dilapidated housing for new housing at
greater densities, and similar solutions
are, due to existing conditions, of only
limited potential value as a viable solution.
If population and housing growth is to
occur in the Stillwater area with sanitary
sewer and a full range of urban services,
annexation of land now in Stillwater Town-
ship in accordance with the plan presented
herein would seem advisable and in the
general public interest and the City's
interpretation of Metropolitan growth needs
and plans.
129
If annexation is not possible or permitted,
the setting of numerical and other goals and
policies for the provision of new sub-
sidized housing in Stillwater becomes rather
academic unless commercial and industrial
land vital to the local economy is utilized.
Substantial amounts of subsidized or any
type housing on land presently zoned for
business and industry would present the
two -fold problem of additional need for
public facilities and services plus an
even weaker public financial ability to
provide such added facilities and services.
It is proposed that land be annexed as
indicated on the plan graphics adding land
to the northwest by 1985 as per the sewer
service extension plan and then additional
land to the southwest in the vicinity of
Long Lake by 1990 also in accordance with
a gradual, phased, and logical extension of
sanitary sewer and other public facilities
and services.
b) Substandard Housing
Field surveys,and other data indicates that
an estimated 155 residential buildings
(192 dwelling units) are in need of repairs
and proper maintenance; however, only about
5 residential buildings appear to be so
dilapidated as to require demolition .rather
than rehabilitation. Organized specific,
directed, and coordinated housing rehabil-
itation action programs are needed. At the
present time, housing rehabilitation is
taking place but on an individual property
owner basis without total community guidance,
assistance, nor direction. Much of the
housing rehabilitation now taking place is
a result of growing interest in historical
renovation. Housing with visual and other
deficiencies is highly scattered about the
older neighborhoods rather than being
concentrated; existing and potential
neighborhood environmental deterioration
casts doubt upon'long -range investor
confidence in the economic feasibility and
practicality of financing individual
historic building renovation.
130
The following is proposed for a maintenance,
rehabilitation, and redevelopment program:
1. Appoint a citizens task force to assist
the HRA and City Council in determining
the specific needs, a time schedule for
rehabilitation of all existing housing in
need, and assignment of responsibility for
directing a City -wide housing rehabili-
tation program of action.
2. 'Conduct a more detailed and systematic
inspection (interior and exterior) by the
Building Inspector, Fire Department, and
City Health Officer based upon results of the
1980 Census of Housing.
3. Condemn and have demolished the few
residential buildings in a dilapidated
condition.
4. Adopt a maintenance code, enforcement
procedures, require occupancy (certificate)
permits, and a "Truth in Housing Ordinance ".
5. Consistent with a policy of actively seeking
Federal, State, and other financial grants -
in -aid for provision of recreational needs,
so too, seek Federal sources of revenue,
State rehabilitation loan and grant programs,
and explore the feasibility of locally
funded rehabilitation and redevelopment
programs. Such endeavors should also include
needs for historical preservation and
renovation needs.
6. Coordinate all rehabilitation efforts with
adjacent Oak Park Heights (see Housing Plan
and Analysis submitted for Stillwater review).
7. Study for feasibility and practicality of
application, all recommendations and suggestions
contained in the Housing Rehabilitation
Handbook, A Guide For Rehab Assistance in the
Twin Cities Metropolitan Area, Metropolitan
Council, December, 1974.
131
CONTENTS OF REHAB HANDBOOK
I. Introduction
II. How To Use This Handbook
III. Basic Housing Maintenance and Repair
IV. Rehab Contractors
V. Rehab Assistance Groups
VI. Local Housing Authorities
VII. Neighborhood Associations
VIII. Public Rehab Financing Programs
1. Minnesota State Housing Finance
Agency
2. Section 312 Loans and Section
115 Grants
3. Locally Funded Loans and Grants
4. FHA Title 1 Home Improvement Loans
5. Locally - Operated Rehab Programs
Using Federal Community Develop-
ment Funds
IX. Conventional Rehabilitation Financing
X. Building Permits
XI. Property Taxes
132
8. Another approach to providing adequate and
affordable housing for low and moderate
income groups involves assistance in the
form of rehabilitation loans and grants.
This approach would particularly be beneficial
for use in the City's older neighborhoods.
Sources or mechanisms available for facili-
tating this type of assistance include:
a) Minnesota Housing Finance Agency Home
Improvement Grant - A Home Improvement
Grant is paid by the State to an indiv-
idual to correct defects in a home's
energy usage, safety and habitability.
This grant does not have to be repaid.
To qualify, an applicant must own the
property which is to be improved and must
have an annual income of $5,000. or less.
b) Minnesota Housing Finance Agency Low
Interest Home Improvement Loans - Loans
are provided at an interest rate of
between 1% and 8% to homeowners with an
adjusted gross income of less than
$16,000. Loans are provided for most
basic and necessary improvements to make
a home more livable, and especially
encouraged when the improvement results
in an energy savings, increases property's
compliance with local codes, or increases
the market value of the property.
C) Section 8 Moderate Rehabilitation - This
is a new program which will enable
existing owners of rental units to make
needed repairs, while HUD guarantees
they will receive rent, and leases the
unit to eligible low and moderate income
households. The program is administered
by the Metro HRA.
9. To the extent that program allocations are
available for Stillwater and further local
housing assistance efforts are found
necessary, the following program options are
available and should be considered:
State Programs
a) Affordable Homes Program - This program,
run by the Minnesota Housing Finance
Agency, will take care of an increasing
share of housing units needed by moderate
income families. This is essentially
a mortgage loan fund that is financed
through the sale of revenue bonds.
Individuals contact participating lending
133
institutions.
b) Homeownership Assistance Fund - A MHFA
program, this fund provides assistance
to households who are purchasing their
first home, new or existing, or who have
not owned a home in two years. The non -
interest loans helps lower payments in
early years and provides for gradual
increases as household income rises.
c) Public Priority Program - This is a new
MHFA program, which will be providing
lump sums of $400,000. to $500,000. to
suburban cities to help finance the write-
down of land purchases for housing. The
municipality should contact the MHFA.
Federal Prosrams
a) Section 235 Homeownership Assistance for
Low and Moderate Income Families - Appli-
cation for this program is made by the
individual to HUD, who then directs him
to lending institutions participating
in the program. This program enables -
eligible families to afford new homes
that meet HUD standards. HUD insures
the mortgage and makes monthly payments
to lenders while the homeowner must
contribute 20 percent of adjusted income
to monthly mortgage payments. A home
buyer's adjusted income may not exceed
a certain percentage of the local median
income.
b) Section 8 New Construction - Private
developers put together packages for
rental housing which are submitted to
HUD. On approval of the proposals,
HUD contracts to subsidize the units to
be occupied by eligible families.
c) Section 8 Existing - Existing rental
units are refinanced and often rehabil-
itated. HUD makes up the difference
between what a lower income household
can afford and the fair market rent for
an adequate housing unit. This program is
administered by the Metro HRA.
134
d) Scattered Site Family Housing - The
Metro HRA receives funds from HUD for
this program, which involves the
acquisition of housing units on scattered
sites and subsequent leasing of the units
to low and moderate income persons.
10. It would seem reasonable that all housing
in Stillwater could be brought up to at
least a generally acceptable "visual"
standard by 1990; this accomplishment would
be similar to that of North St. Paul in
Ramsey County between 1969 and 1979.
11. Even smaller efforts such as annual and
organized "clean -up, fix -up" campaigns can
be of help to the residential environment.
Citizen concern (see Appendix) has been
expressed over yard as- well -as building
maintenance and appearance.
a) Historic Housing - This element of the
Stillwater housing problem is somewhat
unique and covered elsewhere in this
Planning Report.
b) Housing Values - A substantial amount of
the housing in Stillwater is quite old
and there are no significantly large —�
areas of "high value" housing, "luxury"
apartments, or the like which produce a
large tax return in relation to the cost
of City facilities and services required.
Further, the City has had a comparative
low and cronic low per capita assessed
valuation; at the present time, CBD and
industrial park developments give promise
for a brighter economic future in Stillwater.
Recent annexation proposals coupled with
private plans for construction of very high
value single family homes also gives promise
of more diversity in housing prices and
economic stability as- well -as investor con-
fidence in Stillwater's future as a desirable
living environment.
If and when vacant land is annexed to the
City for housing development purposes, the
City should encourage and even require a
full range or diversity in housing types,
styles, and price. Additional higher priced
housing is needed in addition to meeting
goals for provision of low and moderate
income housing needs. A proper "balance" is
needed between high and low value housing
for economic, physical, and social stability
135
and strength in the community.
As noted in the "Standards" Section of this report,
smaller lot sizes will be permitted in new resi-
dential areas and no artifical barriers (such as
large minimum floor areas or garage requirements)
will be imposed against the construction of low
and moderate income housing. On the other hand,
Stillwater must also encourage construction of
some higher value housing if true diversity is
to be achieved and the City not contain more than
its "fair share" of lower value housing with
potential adverse economic and other consequences.
Stillwater should continue its tradition of
full opportunity and diversity in housing and
population.
Subsidized Housing
All prior and current (August 31, 1979) housing
policy recommendations for Stillwater by the
Metropolitan Council have been reviewed and
considered in the establishment of a local housing
plan, policy, and program. An analysis of exist-
ing housing conditions in Stillwater as compared
to Metropolitan Council suggestions for need
would indicate that Stillwater (with recent
proposal for 60 units of additional Federal
Section 8 Rent Assistance Funds) is very near
meeting all projections of need and "fair share"
allocations for lower income households.
136
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AUGUST 31, 1979
ESTIMATED HOUSING ASSISTANCE NEEDS OF LOWER INCOME HOUSEHOLDS IN STILLWATER
Estimated Need of Lower Income Estimated Need of Lower Income
Estimated Total Need Renter Households Owner Households
Large
Total Elderly Family Family
290 158 82 50
*(444) (236)
Large Large
Total Elderly Family Family Total Elderly Family Family
172 85 65 22 118 73 17 28
(307) (200) (137) (36)
*Figures on this line include single individuals; those on the
line directly above exclude single individuals.
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With approval of 60 more subsidized units proposed
at this time and completion of elderly housing
construction, Stillwater will have over 300 units
of subsidized housing of various types. In
addition, the City has a substantial amount of
private, lower value housing of various types
available but not included under any public
subsidy program. It would appear that Stillwater
is very near (within less than 100 units) of
having its "fair share" supply of lower income
households.
In any event, the City may be at the limit of
its capability in providing low income housing
due to the shortage of available land for any
type of new housing. A modest increase (less
than 100 units) could, however probably be
provided for at scattered sites by various means
over the next 10 years. Provided, however, that
the City is successful in its plans for land
annexation, the City can and will provide for its
full ten year "fair share" allocation by type
of needed lower income households as recommended
by the Metropolitan Council. There has been no
lack of developer or City interest or enthusiasm
for provision of lower income housing in the past
or present; there is no evidence to indicate a
change within the foreseeable future. The City
has a present policy of approving construction of
lower income housing as evidenced by the existing
supply; this policy shall be continued but with
added emphasis upon a "balanced" housing supply
also to include a reasonable amount of high value
housing.
Due to the age structure and other conditions in
Stillwater, the City prefers consideration of
funding allocation alternatives (percentage goal
results) favoring provision of elderly and family
(including individuals) rather than "large family"
allocations.
Should private developer interest wane in con-
struction of subsidized, lower income dwelling
units in Stillwater, the City will take appropriate
measures as may be recommended by the Metro-
politan Council to assure their provision in
adequate number and by type of need.
In the past, Stillwater has not had neighborhood
maintenance nor improvement policies and
strategies of any type other than individual
efforts by land owners with respect to housing.
It is now proposed that the City establish clear
and coordinated programs with responsibilities
assigned to achieve the various stated goals
within a specified time framework. It has become
139
clear that individual, uncoordinated, and unguided
efforts of land owners cannot achieve the desired
and stated environmental development and maintenance
goals herein stated with any degree of certainty
or within a reasonable (10 year) time span.
As evidenced by the "Croixwood" housing addition
and other, more scattered developments in recent
years, it is clear that Stillwater's zoning, sub-
division, review procedures, and other requirements
have not proved to be a detriment to attracting
"market rate" housing of various types. This
situation can be expected to continue into the
future provided the City can annex land for
housing development. The City has the capacity,
ability, and desire to extend a full range of
urban facilities to new and diversified housing
provided it can obtain the necessary land. The
City shall not adopt a policy of extending its
urban services to housing developments beyond its
corporate boundaries.
Stillwater is part of a "family of communities ";
apart of the total St. Croix Valley Community
of both urban and rural service districts. Goals
for provision of low income housing should be
coordinated among the various political juris-
dictions including Oak Park Heights and Bayport.
It would not be in the public interest for the City
of Stillwater to provide the total needs for
low income housing for the entire St. Croix Valley
"Community ".
5. Central Business District
The basic concepts of all Downtown plans for
Stillwater have been essentially the same since
the first plan prepared in 1918. Downtown plans
for Stillwater have been prepared over the years
by professional planners, university students,
individual citizens and others.
Most recently, (1978 -79) plan concepts have been
prepared by University of Minnesota and Wisconsin
students and traffic circulation improvement plans
on Main Street have been approved for implementation
by the City Council. Also, it has been suggested
recently that a dike to be constructed for flood
protection take the form of curved, landscaped
beams to be incorporated into the Downtown Park
and River Front Plans; this idea should be studied
further and would seem to have considerable merit.
140
Basic Comprehensive Plan proposals for Downtown
Stillwater are as follows (also see discussion of
Downtown conditions and needs elsewhere in this
Planning Report);
Parkine and Circulation
There are approximately 965 parking spaces Down-
town (315 on- street, 219 off - street metered spaces,
and 435 private off - street spaces). About one third
of the on- street (curb) parking spaces are not
metered.
Based upon results of the Citizen Planning Survey
Questionnaire (see Appendix), parking and traffic
congestion problems in the Downtown are a very
major concern of most citizens in the Community.
Parking turnover and vacancy rate studies were
conducted in December, 1978 and January, 1979
as part of the planning for Main Street
traffic circulation improvements. Similar
studies are needed on a periodic basis,
especially during the summer months.
In general, vehicular circulation in Downtown
Stillwater is via two -way hard surfaced streets.
Street widths (curb to curb) vary from 30 feet
on Nelson Street to 46 feet on Main Street.
Downtown Stillwater is laid out in a grid pattern
that runs approximately parallel to the St. Croix.
This grid pattern, when originally designed,
was imposed upon the land with no regard to
topography, soil conditions, flood dangers, or
water run -off. Consequently, a multitude of
problems have arisen over the years as the
result of this initial error in street planning.
Pedestrian movement is via sidewalks ranging
from 32 feet wide (Nelson Street) to 112 feet
wide along one section of Main Street. The nominal
width of sidewalks along Main Street is 10 feet
with most other sidewalks in the Downtown 8 to 9
feet in width. The high volumes of traffic on
Main Street makes pedestrian crossings here
rather hazardous especially at the Main and
Chestnut intersection where turning vehicular
traffic from or to the bridge creates a visi-
bility confusion problem.
Much of Downtown Stillwater's overall circulation
problem stems from the Minnesota - Wisconsin
bridge's current location. The traffic volumes
across this bridge on many weekends are far
greater than the bridge and highway's designed
141
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capabilities. Consequently, Downtown Still-
water, on almost any Friday or Sunday night, can
become engulfed in a traffic snarl typically
reserved for New York or Los Angeles. It is
therefore essential to the development of a
sound plan for Downtown Stillwater that a new
bridge location be found that will not
completely disrupt Downtown Stillwater's own
circulation system.
Presently vehicular circulation on Downtown
streets is controlled by the standard regulatory
signs and signals. Along Main Street through
traffic is stopped twice, at Chestnut and at
Myrtle, through the use of semaphore lights.
All other regulatory traffic control on
Downtown streets is by "stop" or "yield" signs and
some "one way" signing on Union Street. The
present system of vehicular traffic regulation
coupled with Downtown's hilly terrain and its
numerous intersections due to the many short
blocks, has created a high accident rate within
Downtown. Downtown Stillwater averages
approximately 10 accident /month with the Main
Street - Chestnut and Third Street - Chestnut
intersections the two most hazardous inter-
sections in terms of number of accidents. The
Third Street - Myrtle intersection also con-
tributes rather heavily to the accident toll
with a rate of nearly one accident a month
for 1971.
Traffic counts on Highways 95, 96, and 212
taken by the Minnesota Highway Department show
that Downtown Stillwater's "south approach"
(via U.S. 212 and S.T.H. 95) handles over
8,000 vehicles /day while the "north approach"
(S.T.H. 95) receives over 2,000 vehicles /day.
On an average day therefore, the "south
approach" handles nearly four times the traffic
volume than does the "north approach ".
General Economic Factors
Stillwater's proximity to the highly- urbanized
Twin Cities (25 -30 minutes to Downtown St. Paul
and 35 -40 minutes to Downtown Minneapolis)
should prove to be the community's biggest
economic asset in the years ahead. It can be
143
assumed that the Stillwater area will share in
Metro population growth. The scenic and
recreational assets of the St. Croix River region
will not go unnoticed by people wanting the best
of both worlds - convenience to a large urban
center with jobs and recreational /cultural
diversity and convenience to the open spaces and
natural environment of the St. Croix Valley.
While this anticipated population growth will
also present the Stillwater area with a variety
of problems, it could have a decidedly positive
economic effect.
The influence of the greater metropolitan area
has already made an impact on present day
Stillwater as a sizeable number of Stillwater
residents commute daily to Twin Cities jobs.
This situation has both positive and negative
aspects for Stillwater's Downtown merchants.
While metro growth has increased population and
the standard of living for the Stillwater area,
Downtown merchants must cope with the improved
mobility of area residents and their greater
freedom of shopping opportunities. Stillwater
residents that work in St. Paul or Minneapolis
doubtlessly avail themselves of the opportunity
to shop after work at the large department stores
and suburban shopping centers found in the metro
area. Inticing local residents, and metro area
residents as well, to shop in Downtown Still-
water will require Stillwater merchants and planners
to create a distinctively unique shopping
environment. Already assisted by a natural sett-
ing unequaled in the metro area, the challenge
is to more fully utilize existing natural
features /architectural creations while recreating
a more exciting interesting Downtown.
Recreational Aspects
For many years the number one recreational
activity of Americans has been pleasure driving.
The popularity of this past -time is a well
known fact to any Stillwater resident who happens
Downtown on any pleasant Friday or Sunday night
as weekend motorists give the Minnesota -
Wisconsin interstate bridge a thorough work -out
at such times even with the current energy
problems. The growing interest in skiing and
snowmobiling has extended the season recreational
drivers are on the roads in afid around Still-
water to include winter as well. What exact
impact the inclusion of the St�j.:Croix River into
144
the Wild and Scenic Rivers System will have
on Stillwater is somewhat difficult to measure
but it is obvious that an increase in motorists
and tourists will follow as the St. Croix
River gains a measure of national publicity.
Providing a variety of accommodations, enter-
tainment and shopping facilities for these
Stillwater area visitors will be a challenging
assignment for Downtown Stillwater businessmen.
Increased pedestrian traffic has been noted in
the past three years.
Existing Industries /Potential
The long range outlook for attracting more
industry into the Stillwater area is bright
although the type of industry coming in will
probably be of the smaller variety. With the
current emphasis on environmental quality,
especially in the St. Croix Valley, it will be
to area residents advantage to be very selective
regarding industrial expansion. New industries
that heavily pollute the area will only serve
to destroy the many natural amenities the
St. Croix Valley now possesses.
Downtown Concept Plan
Downtown's Concept Plan, as envisioned at this
time, is shown in graphic form. It is
suggested that this Plan be carefully studied
and its effects carefully weighed. While the
Plan may be subject to considerable change as
conditions warrant, it's essential form should
be retained.
Downtown's basic character is of a late.19th
Century river town and most attempts at reno-
vation have been in this direction. The current
architectural "mood" in many new retail and
restaurant developments is slanted toward the
rustic or quaint and historic approach and Still -
water is in a favorable position to follow this
trend.
Most buildings in Downtown appear structurally
sound although several of them will require
rather extensive repairs to put them in peak
condition. Interior arrangements in many of the
older buildings do not lend themselves to the
most efficient use of space or the most effective
contemporary merchandising displays. Building
exteriors lack a unifying design element to
create a harmonious feeling so necessary to
145
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providing Downtown with a strong image.
Consequently it is advised that architectural
guidance be sought in the development of.the
proper architectural treatment.
It is proposed that an organized, well - planned
Downtown be established to maximize shopper/
visitor convenience /interest and minimize
traffic /pedestrian conflicts. This will
require:
1. Construction of Main Street traffic
improvements recently approved.by the
City Council. The ultimate traffic
problem solution, however, will be
construction of a new giver bridge.
2. The closing of streets that are un-
necessary, create unwarranted traffic
hazards, fail to contribute to an
efficient circulation scheme, or are
difficult to maintain. In this regard
Nelson Street should be closed off
between Second and Main Street (difficult
to maintain and hazardous) and between
Main Street and Water Street (hazardous
and unnecessary). Nelson Alley between
Second and Main Street could also be
vacated for the same reasons as Nelson
Street. The use of too many streets in
Downtown merely adds to confusion, slows
traffic, and creates too many potential
collision points. Three other streets,
due primarily to their steep grades and
the resulting difficulty of winter
maintenance, also should be studied for
closing. These streets are:
*Second Street south of Nelson Street
up the hill. This street should be a
cul -de -sac both at the bottom and top
of the hill.
*Olive Street between Third and Second
Streets.
*Mulberry Street between Third and Main
Streets.
3. The development of a uniform easily under-
standable system of directional graphics for
Downtown. Too often visitors become confused
and disorientated when visiting a strange
town which leads to disappointment and
frustration and an unwillingness to return.
Indicating clearly to visitors where parking,
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shops, and entertainment are located,
provides visitors with an incentive to
stop, shop and return in the future. While
the street improvements should help
considerably to move traffic to its
destination, an improved street layout
will not do it alone and consequently a
uniform system of signing /banners /etc. is
advised.
4. Creation of an environment condusive to
attracting "shoppers" in larger numbers.
Shoppers are persons who purchase several
items taking an hour or more of time as
contrasted to the quick stop convenience item
purchaser. This is done primarily by
appealing to shopping desires of women;
some of the methods proposed are:
a) Creation of an atmosphere in which it
is "fun" to shop and which creates a
desire to become a pedestrian in the
area.
b) Elimination, to the extent possible,
all evidence of deterioration, ugliness,
dirt and grime, inconveniences, hazards,
and the like.
c) Creation of shopper conveniences, all
weather protection, convenient and ample
parking, attractive street furniture,
smooth vehicular and pedestrian traffic
flow, available rest rooms, attractive
rest areas, landscaping, and similar
amenities and conveniences.
It is proposed that an architectural theme
be adopted and enforced to capture and main-
tain the historical charm of the Stillwater
area. Contemporary architecture in many
cases cannot be compatible with the existing
character of Downtown nor can it hope to
create an environment competitive with that
of coordinated new shopping center develop-
ments.
5. It is proposed that several areas be cleared
of existing structures to make way for new
uses and buildings. This would be "selective"
clearance of comparatively small areas and this
may be done by private or public interests.
It is recommended that the City buy and clear
land for new development only if private
enterprise does not respond to the Plan
proposals. It is the intent here to create
confidence in the future of Downtown so as to
148
promote added private investments with a
minimal amount of public direction and
financial participation. Recent construction
including senior citizen housing and pro-
fessional offices is a sign of good
progress.
6. Some basic plan proposals are as follows:
a) Installation of a permanent flood
protection dike coordinated with planned
street improvements, waterfront park up-
grading, and elimination of unnecessary
rail trackage. Due to poor subsoil
conditions, an earth dike will probably
be the best solution with the possibility
of utilizing portable flood walls of
special design where openings must be
left for streets or other purposes. The
dike should be landscaped and planned to
blend well with the surroundings rather
than being an eyesore and conflicting with
environmental objectives.
b) Continue development of suitable housing
for the elderly. In addition, several
opportunities exist for development of
diversified multiple housing for both
higher and lower income groups.
c) Installation of a clearly marked ped-
estrian path or trail meandering through
the Downtown connecting various points of
interest including historical aspects of
the environment.
d) Improvement of all pedestrianways by
installation of adequate street furniture
(benches, attractive trash recepticles,
ornamental street lighting, specially
designed traffic signals, and signs, planter
boxes, and the like). Where possible,
pedestrian flow should be maintained from
building to building within blocks for
all- weather protection.
e) While no full -scale pedestrian malls are
proposed, several "mini" o"r "pocket"
parks are recommended to add green spaces,
pedestrian amenities, and utilize land in
a more efficient manner. The length and
severity of Minnesota winters hinders the
year- around effectiveness of expensive full -
scale malls, especially in case of smaller
149
communities where the investment of such
large amounts of money could be put to
better use, i.e. street furniture, planter
boxes, improved lighting, etc. The
creation of a full -scale mall on Main
Street would also hamper traffic circulation
in addition to eliminating much needed
parking along this throughfare.
f) Most block interiors could be more
effectively and more fully_titilized;
certain areas lend themselves to interior
pedestrian as well as the usual street
orientation.
g) All existing alleys and open spaces
between buildings should be greatly im-
proved to present a better appearance and
be inviting to pedestrian movements.
h) Future parking additions should be in the
form of ramps utilizing the slopes to
fullest advantage with such structures
also providing for interior pedestrian
movement and some non - parking uses.
Parking should be provided as the need is
indicated by more detailed surveys indi-
cating t'urn -over, vacancy rates, high
demand areas, and the like.
i) Improved boat docking facilities should
be provided along the River to maximize
summer potential for attracting customers
for cafes, entertainment spots, and
general increased usage of the Downtown.
j) Fuller advantage should be taken of the
caves, steep slopes, rocks, un -used River
shoreland, and other natural features.
Stillwater could well serve as a "jumping -off"
place for visitors and "explorers" of the
St. Croix Valley. A trail system along
the St. Croix River which would permit
hiking and biking use in summer and cross -
country (touring) skiing in winter, should
be investigated. This trail could go
both south and north of Stillwater, with
feeder trails extending up into the
bluffs and through Downtown Stillwater.
The contrast of the natural scenery along
the trails coupled with a Downtown that
contains a variety of easily accessible
shops and eating /entertainment places,
would intice a wide range of visitors and
shoppers.
150
7. Further development of the Downtown should
recognize the various functions (retail,
financial, general office, housing, entertain-
ment, etc.) to avoid improper mixtures that
detract from the full economic potential of
,proper locations. Certain uses such as
lumber yards, car dealerships, and centrally
located service stations should be encouraged
to leave the Downtown for better locations and
to make room for expansion of more appro-
priate and intense activities.
8. The plan calls for a series of relatively
small, gradual, and scattered improvements
rather than large scale clearance or other
disruptive renewal actions. This approach
can show significant results in a period of
about five years with a minimum of disruption
and a maximum of private investment and
development.
9. Future Downtown development should be of the
highest quality possible. Stillwater's
location on the St. Croix River, which is
now part of the Wild and Scenic River System,
dictates that the town develop and maintain a
high quality environment which will be in
keeping with the area's superior natural
attractions. A high quality environment
(comparable to Sausalito in the Bay area of
California) will excite people to return to
Stillwater to shop, vacation and live. An
environment of inferior quality will discourage
tourist visits and large scale capital in-
vestments. The construction of buildings lack-
ing in high architectural value, will only
serve to produce a sterile Downtown while the
building of high quality structures will
enhance Downtown's image and serve to set a
standard of architectural excellence for later
builders.
10. The careful phasing of Downtown improvement
projects so that necessary improvements and
alterations are installed at the appropriate
times. As an example, all storm and sanitary
sewer line installations coupled with the
burying of telephone and electrical service
cables should be done prior to the repair of
street and alley surfacing. Often, store
front restoration work can be done more
economically if several store owners collab-
orate on such a project; ideally, some
construction activity should be occurring almost
151
constantly within Downtown over the next
5 to 10 years.
11. Preservation of all buildings that are
structurally sound and that can be utilized
in some manner. It is suggested that
several other obsolete buildings be re-
placed with more utilitarian and sounder
structures in the future, however, the
success of the proposed Plan does not hinge
on their immediate replacement.
The plan for Downtown Stillwater is of little value
if it cannot or will not be implemented. To be
implemented, a plan must be practical and econom-
ically feasible. Further, there must be the desire
and leadership to take the steps necessary to attain
the objectives outlined in the planning program.
Some basic objectives of the Downtown Stillwater
Plan are:
1. Retain and enhance the competitive ability
of commercial activities.
2. Remove instances of structural and environ-
mental deterioration and blight.
3. Eliminate those land uses which are not
compatible with a "Downtown" situation and can
be located elsewhere to the mutual advantage
of the Downtown and the uses relocated.
4. Provide room for expanding and new uses
compatible with the goals of a healthy
Downtown.
5. Provide a sound and exciting environment for
shopping, working, living, and enjoyment
of leisure time.
6. Provide for a stronger employment and tax
base.
An attempt has been made to develop a practical and
economically feasible plan for the development and
maintenance of Downtown Stillwater. It is suggested
that primary objectives can be attained within
a period of about five years provided the
necessary steps are taken promptly and energetically.
Some of the steps to be taken are as follows:
1. Plan Review
The Plan should be carefully reviewed prior
152
to any formal and official action to adopt
the Plan.
2. Public Hearing
A public hearing should be conducted on the
Plan following its review. The purposes
of the public hearing would be as follows:
a) Present the plan to the general
public.
b) Show need and justification for
renewal plans and establish required
evidence to support public participation.
c) Obtain public reaction, comments,
and suggestions.
3. Plan Modification and Adoption
The Plan should be amended as may be deemed
desirable following results of the public
hearing. The final plan should then be adopted
by the Planning Commission, and City Council.
The entire area within the boundaries agreed
upon should be designated by the City Council
as an official project area to help serve as
the legal foundation for renovation, and
preservation activities.
4. Explore Financing Methods
It is not recommended that the project be a
typical Federal aid endeavor for a variety of
reasons including the lack of available Federal
funds, time involved, "red tape ", loss of local
control, and the belief that such funding is
not essential nor necessary to the satisfactory
attainment of the desired objectives. Rather,
it is recommended that a variety of public
funding methods be utilized and that consid-
erable reliance be placed upon private ini-
tiative and resources. It may be possible,
however, to utilize Federal and State financial
aid for certain aspects of the project including
housing for the aged, flood controls, water-
front improvements, pedestrian amenities, and
others.
There are various local financing methods
available for consideration:
a) Tax Anticipation (tax increment) Bonding
(payment of bonds from increased project
tax return resulting from new development).
153
b) Special Benefit tax districts.
c) Limited mill levy for renewal purposes.
d) Normal assessment practices.
e) Heavy reliance upon private enterprise
to accomplish major portions of the
plan.
f) Special Rate Rehabilitation Loans -
Pooled source of loans from financial
institutions.
5. Select Initial Projects and Set Priorities and
Timetables
Various projects have been selected as possible
to start during 1979 although it will not be
feasible nor desirable to attempt them all
during the next twelve months. The projects
are:
a) Public Housing for the Elderly (now
under construction).
b) Acquire or otherwise promote new
development of vacant and under
utilized lots.
c) Select one or two retail blocks which
shall remain for testing of rehabili-
tation efforts.
d) Acquire land for long -range off - street
parking needs.
6. Zoning
The total renewal project area should be
delineated as a special zoning district
requiring a conditional use permit for all
development in the Downtown Area. A special
use permit should be required for all improve-
ments exceeding $500. in value for the following
reasons:
a) Assure compliance with CBD plan.
b) Encourage architectural "theme" re-
quirements.
c) Prevent undesired developments on
land scheduled for acquisition for
parking or other purposes.
d) Provide for review of developments
by the public and the renewal area
land owners and tenants.
7. Further Planning
Certain planning studies must be conducted in
greater detail if the development effort is to
proceed in an efficient and coordinated manner.
154
Special studies are needed in the following
areas:
a) Flood control
b) Housing (site selection, unit and
type needs, architecture, etc.)
c) Individual project details
d) Waterfront treatment
e) Road system (engineering and traffic)
f) Parking (vacancy, turnover, generation,
time limits, update of January, 1979
study)
g) Street, sidewalk, trail design
(pedestrian amenities)
h) Architectural treatment
8. Relocation
Certain uses may be requested to move from
their present location. It should be the
responsibility of the City to assist those
displaced to find new and suitable locations.
A relocation service should be established
consisting of real estate, financial, welfare,
and other interests who have the necessary
knowledge and ability to coordinate needed
efforts. Immediately begin working with
lumber yards, fuel storage, and certain other
uses to find new sites outside of the core
area of the Downtown.
9. Rehabilitation
Many buildings, even though old shall remain
but should be improved in various ways. A
detailed study should be conducted on a block -
by -block basis to determine site and structural
improvements needed to attain the objectives
including historical renovation and preser-
vation. Preferably, such design work should
be commissioned by the land owners and tenants
affected under general guidance of the over-
all Plan concepts.
It is suggested that various local financial
institutions combine their resources and
efforts to assist in financing the rehabilitation
efforts. Such encouragements as may be
possible should be extended to facilitate
structural improvements, remodeling, and
repairs as may be needed.
10. Parking and Zoning
Establish a zone in which new developments
need not provide their own parking and in
which, by public policy, it shall be a public
155
responsibility to provide off - street
parking requirements.
11. Enforcement Policy
Many older buildings should be remodeled or at
the very least given a fresh coat of paint.
The City should establish a policy of en-
couraging rehabilitation by not overly
enforcing building, plumbing, electrical, fire,
and other codes which would render some such
rehabilitation economically unsound or tend
to discourage rehabilitation when expensive
requirements are enforced as provisions of
a building permit.
12. Representation
It will not be possible to deal separately with
each individual property owner and tenant
within the project area. Steps should be
taken to establish an organizational structure
in which area representatives can meet to
discuss renewal plans with City officials.
An early item discussed should be that of
discussing the possibility of private re-
development corporations and actions to be
taken by individual private landowners affected
by the Plan.
13. Recreation
The Planning Commission and park and re-
creation interests should immediately begin
looking at the recreation aspects of the
Plan and the proposed pedestrian trails and
amenities. Further detailed planning should
be subject to their considerations. Also,
any buildings of historical significance
should now be designated.
The CBD plan is structured to obtain maximum
results from a minimum of public effort,
control, and expense. Public planning and
coordination along with selective and limited
public projects should be expected to produce
continued interest, confidence, and sub-
stantial new private investments in the
Central Business District. Also, the program
is structured to be of little or no cost to the
average tax payer in Stillwater. In fact,
the program is designed to produce a net tax
asset to the Community as well as a pleasant
environment and source of civic pride.
156
14. City participation in Downtown renovation
should be desired and requested by the various
land owners and tenants. High priority
items should include:
1. Provision of adequate parking.
2. Traffic circulation improvements.
3. Structural rehabilitation and
historic renovation and preservation.
4. Provision of "streetscape" improve-
ments for visual affect and pedestrian
amenities and convenience. This in-
cludes landscaping, rest benches, new
street lights, and the like.
5. New building development on currently
vacant or underutilized land.
6. A strong repair and maintenance
program.
7. River front beautification and flood
controls.
8. Leadership and a structured, coordinated
and directed effort.
6. Air Space Controls
Although Stillwater does not have an airport,
the Lake Elmo airport (intermediate, public)
is located nearby and a small, private airport
to the west in Grant Township. Also, MDA
regulations, Aero 13, Surface Water of the St.
Croix River applies for seaplane operations per-
mitted.
There are no airports, proposed airport sites,
search areas, or -other related facilities in
Stillwater. Although there are no airports,
any development affecting navigable airspace within
the Community is subject to Minnesota Department of
Aeronautics regulations, Aero 9 (Criteria for
Determining Obstructions to Air Navigation).
At the present time, the Zoning Ordinance contains
restrictions on height of structures and other
factors which may affect air traffic over the
Community. Zoning and other applicable Community
Codes and Regulations shall reflect requirements
contained in the Airports chapter of the Metro-
politan Development Guide as appropriate.
Existing NSP electrical transmission towers
and radio transmission are the only structures
anticipated to have any potential affect upon air
traffic over or near the Community now or in the
future. These, however, are low in height as
compared to the very high smokestack (Allen S.
King NSP generating plant) located in adjacent
Oak Park Heights. Any proposed structures over
157
35 feet in height or which may otherwise affect
air traffic shall require a conditional use permit
for construction.
Due note has been taken of the Metropolitan
Council's Local Planning Assistance Planning
Brief - Aviation Planning Considerations for
Communities Without Metropolitan System Airports.
The City has no plans to allow construction of
any structures of any type that would hinder air
traffic. Although airspace regulations will be
contained in the Zoning Ordinance based upon
Washington County model codes, the City will,
none - the -less notify the Aeronautics Division of
MN /DOT of any proposal for construction in ..
Stillwater that could in any way be a possible
obstruction to air navigation or otherwise inter-
fere with air traffic safety.
Seaplane operations are not permitted on lakes
in the City. There are no personal use air trans-
portation facilities within the Community land
areas and none are to be permitted.
Seaplane operations on this area of the St. Croix
are permitted under Aeronautics Rules. While
seaplane operations do not constitute a hazard at
the present time, the intensity of recreational
use of the River and continued seaplane operations
may become a hazard. The City will continue to
monitor seaplane use and request review of the
seaplane operations by the Aeronautics Division of
MN /DOT on a periodic basis.
Criteria for determining obstructions to air
navigation, Appendix A, Local Planning Assistance
Planning Brief and Appendix B, Seaplane Operations
Within Seven - County Metro Area will be used for
local air travel condition monitoring purposes.
7. Historical Sites and Structures
As noted in the inventory of historical
sites and structures, Stillwater has both variety,
numbers, and wide distribution worthy of preser-
vation and renovation. To date, however, there is
no plan, coordinated program, nor organized total
community effort at historic renovation and
preservation.
While a concensus seems to exist that historical
preservation and restoration is "desirable ",
there is no apparent concensus when it comes to
specifics (sites, buildings, program needs,
public responsibilities, legal ramifications, and
the like).
158
As in the case with normal or standard housing
rehabilitation, efforts at historic restoration and
preservation (Downtown, housing, and other sites
and structures) are largely uncoordinated, in-
dividual, self -help projects. Organized citizen
groups interested in andpromoting historic aspects
of Stillwater do, however, exist.
Basic recommendations are as follows:
a) In conjunction with the proposed citizens
task force on housing rehabilitation planning
and implementation, historic preservation and
restoration should be considered; a separate
task force is not recommended since housing
rehabilitation needs are closely tied and
related to historic considerations. The
primary need is to develop a program and
assign responsibility.
b) Staff or other specific assistance should
be made available to aid interested in-
dividual property owners in design con-
siderations and ways and means to achieve
the desired results.
c) It is suggested that a truly successful
program of historic housing preservation
and renovation cannot be accomplished in the
absence of a total housing rehabilitation
program; historic renovation of individual
homes within deteriorating neighborhoods is
not a realistic goal on any significant scale.
General housing conditions and financial
confidence in the area must first be improved.
For this and other reasons, general housing
rehabilitation (visual, safety, living
conditions, elimination of over - crowding
and the like) should be given highest priority.
d) The major objective in all of this should be
to preserve the essential existing "character"
of the City, character has to do with size
and scale, spaces, building setbacks, housing
style, and other aspects of the general
neighborhood environment. It is not re-
commended that a "pure" or rigid, 100%
historic district or area be preserved or
achieved by renovation.
e) In both the Downtown and residential neigh-
borhoods, flexibility should be the rule.
New buildings with differing architectural
style can and should be accomodated so long
as some care if given to avoiding stark and
glaring conflicts in design and with the
existing essential "character and general
environmental image projection" of the
community.
159
f) Two historical "districts" are proposed (see
plan graphics). A special zoning district
should be established for the Central Business
District and one for the older residential
neighborhoods with a significant number of
homes with historical values. The purpose and
function of these "districts" would be to
aid in historical preservation and renovation
as follows:
1. A statement of public policy favoring
and encouraging historic values.
2. Providing administrative procedures for
review of building permit applications,
analysis of conformity to historic
preservation goals, and provision of
design assistance and guidance to
applicants. Historic preservation,
restoration, nor any architectural design
would be required; it would merely be
encouraged in such a process. Building
permits would not be denied on the basis
of non - conformity with historic design
considerations of any type. Properly
done, this procedure would add only a
week or two to the time required to
obtain a building permit; this time would
be required for review of the permit
application and suggestions and advice
given to the applicant who may or may not
elect to incorporate the historic review
findings and recommendations into the
final plans for building rehabilitation,
remodeling, reconstruction, or new con-
struction. This procedure has been
followed in other communities with a very
high level of voluntary compliance.
3. New residential development areas would be
encouraged to incorporate the essential
"character" of the Stillwater Community
into their subdivision and housing designs.
g) Decisions are needed on certain specific
sites such as the Old Prison site (now used
for school bus storage and repair and other
industrial type uses), the Nelson School,
and others. If they are to be preserved as
true: "historic" sites and structures, existing
physical condition and uses are not compatible
with the intent, purpose, and desired environ-
mental results. A decision or concensus
resulting in appropriate action is also
needed as to the total community committment
or non - committment to historic preservation
and renovation. If the total Community is
160
to be benefitted in a long -term and substantial
manner, desire must be translated into an
organized and concerted action program, such
a Community committment is of more importance
now than detailed considerations of desired
building design, building heights along the
River bluff line, and the like which cannot
be implemented.
h) Various aids and guides may be utilized as
follows:
*RTR and similar groups.
*Heritage Preservation Committee of the
Department of Interior.
*Washington County Historical Society.
*Economic and Tax Incentives for Rehabili-
tation of Historic Buildings (Tax Reform
Act, Office of Archeology and Historic
Preservation, U.S. Department of the
Interior, Washington, D.C. 20240).
*Director, Minnesota Historical Society,
St. Paul.
*Architects.
i) Funding should be provided for more complete
and detailed surveys of historic site and
building potential in both the Downtown and
various residential neighborhoods. This should
be done, however, only if there is a
concensus established that appropriate action
will follow.
j) Historic sites considered should include all
building types (residential and non - residential),
markers, monuments, museums, geological sites,
archaelogical sites, trails, portages, roads,
and railroads.
k) Special State legislation for historic pre-
servation in Stillwater offering tax and other
economic incentives may be desirable. Still-
water has the potential to accrue larger
economic and environmental benefits from
historic preservation and restoration. The
degree of success achieved will depend largely
upon the ability of the Community to gain a
concensus and to launch a total, coordinated
organized plan and program of goal achieving
action. Only moderately successful results
can be achieved by continued reliance upon
individual action by some property owners.
The Downtown business community may decide that
mandatory historic requirements be imposed
in that area to achieve financial goals for
161
business via customer attraction features;
enactment by the City of such mandatory re-
quirements is not recommended except in the
event of such a request by the bulk of the
Downtown business community. At this time,
it seems unlikely that such a request would be
made by the residents of various residential
neighborhoods but this possibility remains
open with the passage of time.
In conclusion, it is considered more important
at this time to retain the essential "character"
of the "River Town" environment than to save
certain individual sites or require historical
preservation and restoration by law. Recom-
mendations contained herein should result in a
reasonable and significant amount of volun-
tary compliance with the desired goals.
8. Solar Access Protection
Planning for solar access is important because
solar energy systems depend on the availability
of direct sunlight to function properly. A 1978
amendment to the Metropolitan Land Planning Act
(Minnesota Statutes Section 473.859, Subdivision
2) requires local governments in the Metropolitan
Area to include "an element for protection and
development of access to direct sunlight for solar
energy systems" in their comprehensive plans.
Protecting solar access means protecting solar
collectors (or the probable location of future
collectors) from shading by adjacent structures
or vegetation. This handbook contains advisory
guidelines that local governments can use to
prepare a solar access element.
Communities need to plan seriously for solar access
because, even with mandatory conservation measures,
energy demand will outstrip fossil fuel supplies
by the late 1980's, according to the Minnesota
Energy Agency's 1978 biennial report to the State
Legislature. The Energy Agency found that, among
several alternatives considered, solar energy has
the greatest potential for replacing traditional
fossil fuels. The biggest obstacle to solar energy
use in Minnesota, it found, is the lack of
protected access to direct sunlight for solar
energy systems. Such access can be assured through
local planning and land -use controls.
A solar access element may include goals, policies
and an implementation program that uses land -use
regulations to protect and increase solar access.
Stillwater should review all its ordinances to make
sure they are consistent with its solar access
162
needs and objectives. The 1978 Minnesota Omnibus
Energy Act (Laws 1978, Chapter 786), which amended
the Land Planning Act, also amended the Municipal
and County Planning Acts and authorized use of
solar easements.
Stillwater should recognize the basic differences
in solar energy systems because each has its own
needs that require protection through land -use
regulations. A passive solar energy system uses
a building's structural design to collect and
store solar energy -- for example, windows on a
south - facing wall with a concrete floor or other
"thermal mass" that absorbs and radiates heat.
An active solar energy system uses a separate
collector to transform solar radiation into usable
heat and a mechanical system to.transfer the heat
to where it is needed. Storage is usually in-
cluded in such a system.
Another factor local planning should consider is
how local climate affects the heating and cooling
requirements of buildings, and how the amount of
solar radiation received depends on sun angles and
length of days. Collection of solar energy
requires protection of a solar collector's
"skyspace ". Solar skyspace is the portion of the
sky that must be free of intervening trees or
structures for a collector to receive unobstructed
sunlight. Topography is important because it can
lengthen shadows of trees or buildings, thereby
interfering with a collector's skyspace.
Solar access protection techniques include
modifying building height restrictions and lot
dimensions, reducing front yard setbacks using
"zero lot line" and bulk plane zoning, applying
performance zoning techniques and flexible zoning
methods to protect solar access. Communities can
also revise their subdivision regulations to
protect solar access. Subdivision regulations are
especially important for developing communities
because they can make solar access protection an
integral part of a new development. Sub-
division regulations can also be important for
developed communities undergoing major re-
development.
Major portions of Stillwater have heavy and
extensive tree cover shading a great majority of
homes and even business establishments. Unlike
many other older communities platted many years
ago in Minnesota, most lots are not oriented in
a single direction but rather about half are
oriented east -west and half north -south with lots
in the newer Croixwood Addition being on
curvilinear streets and being oriented in all
163
directions.
In Minnesota, lots and streets need to be properly
oriented to the sun. Generally, buildings should
face north and south so there is maximum exposure
to the sun along the buildings length. Orienting
the length of buildings along an east -west line
is ideal for single family homes and for town-
houses but may not be proper for other building
types. Advisory standards and techniques for these
and other considerations are as contained in
Planning For Solar Access Protection, Local
Planning Handbook, Publication No. 07 -79 -659,
Metropolitan Council, September, 1979.
Solar Access Goals for Stillwater
Guarantee access to direct sunlight for solar
energ� systems, and to encourage the development
and use of solar energy systems to help offset
the projected scarcity and high cost of con-
ventional fuels.
Protect solar access for solar energy systems by
modifying existing land -use controls until such
time as a state law is enacted guaranteeing solar
rights, and to support passage of such legislation
which may be acceptable to the City of Stillwater.
Solar Access Policies
Because of rapidly rising conventional energy
costs and predicted declines in fossil fuels, it
is considered vital to the general welfare of the
community to encourage and protect the use of solar
energy systems. Because access to direct sunlight
is vital to the proper functioning of such systems,
the city will support appropriate legislation
aimed at guaranteeing right to sunlight for solar
energy systems.
Stillwater will consider varying setback requirements
in residential zoning districts as a means of
protecting solar access.
The city will re- examine its building height
regulations to determine whether building heights
are in accord with the regulations, and whether
a reduction in the standards would be practical
to protect solar access.
Solar Access Plan Implementation
Stillwater will amend its zoning ordinance to
make solar energy systems a conditional use in
all districts, and establish criteria for issuance
of a conditional use permit including:
164
A finding that the proposed collector will be
unshaded by existing and /or planned structures
or by existing vegetation on neighboring lots
between the hours of 9 a.m, and 3 p.m. on
December 21.
A finding that the solar skyspace needed
for efficient operation of the collector will
not adversely restrict the reasonable
economic use of the neighboring property to
the south.
A finding that the proposed solar energy system
will provide at least 50 percent of the annual
space heating and /or air conditioning needs
of the building, or at least 90 percent of the
domestic hot water heating needs of the
building when the solar index registers at
least 70.
A finding that the proposed solar system is
not in conflict with other environmental
policies which may be considered of higher
priority.
The city's staff will conduct a study of building
heights in residential neighborhoods to determine
whether the height regulations in such neighbor-
hoods can be modified to ensure greater protection
for rooftops to access to direct sunlight without
creating a substantial number of nonconforming
uses.
The city's staff will conduct a study of the
feasibility of varying setbacks as a means of
assuring greater solar access.
Monitoring, Evaluating and Reporting
The city staff will establish a procedure for
periodic monitoring and evaluating the effec-
tiveness of the solar access policies and will
report its findings, conclusions and recom-
mendations annually to the city planning commission.
The planning commission will consider the annual
solar access reports, and may recommend changes
in plan policies, goals and objectives as
needed on a periodic basis to the City Council.
The City will prepare and adopt a more complete
and detailed Solar Access Protection element when
sufficient funds are available and priorities
are set as to potential conflicts between solar
access protection and other Community environ-
mental goals and policies.
165
The City will review all new developments to
determine if all possible, reasonable, and desired
design concepts have been utilized for maximum
energy conservation measures of all types including
solar. This will be in accordance with an
overall City policy of encouraging maximum energy
savings and conservation elements in all aspects
of the Community environment.
The City will consult with and obtain the
assistance of the local energy suppliers in moni-
toring energy consumption, costs, and use of
alternative energy sources.
PART III. FACILITIES PLAN
Community facilities may be public or quasi - public and
include, among others, the transportation system, re-
creation open space, utilities, churches, cemeteries,
hospitals, waste disposal, and the like. A variety of
facilities and services are required in urban areas for
the general welfare.
Some facilities and services are essential such as health,
fire and police protection, roads, and the like. Some
may be considered as only desirable by the citizens and
provided on the basis of local preferences for life
styles, residential amenities, quality of environment,
active and passive recreation, and the like. These
"desires" can usually be measured rather accurately by
the amount of public money the populace is willing to
spend for public facilities and services beyond the bare
essentials.
As in many communities, the citizens of Stillwater have
generally agreed that taxes are "not too high" (See
Citizen Survey in Appendix) but that taxes should not be
increased and facilities and services should not be
expanded nor new ones added if it means an increase in
taxes. There is a general feeling that better and more
efficient use could be made of available funds and there-
fore many suggestions for improvements and new facil-
ities and services have been offered.
A. Inventory
Existing facilities
since the 1961 City
of facilities and r
improved facilities
existing facilities
exist in 1979 is as
166
have been improved considerably
Plan was prepared with an analysis
ecommendations made for new and
and services. An examination of
and levels of service as they
follows.
1. Transportation
The proper planning of facilities for the movement
of people and goods should result in an integrated
and coordinated system which is safe, economical,
efficient, and energy saving. There are various
forms of transportation in Stillwater including
water.
Streets and Hiehways
The major street system is as indicated on the
plan graphics. These major streets are shown by
functional classification as assigned by the
Metropolitan Council, Washington County Highway
Department, MN /DOT, and the City.
Trunk Highway 36/212 is of Metropolitan significance
extending from 35E to Washington CR 36 and from
CR 36 to the St. Croix River. It is a four -lane
divided expressway with at -grade intersections and
partially controlled access. It functions as an
Intermediate Arterial. A discussion of existing
conditions and proposed improvements is contained
elsewhere in this Planning Report under the Joint
Powers Area. No basic improvements such as grade
separated interchanges are programmed for this
facility through 1990.
A new bridge across the St. Croix River has been
discussed much in the past primarily as a way to
permanently relieve severe traffic congestion within
the Central Business District. A location for
such a new bridge has not been selected nor has
funding been considered through 1990.
As may be noted from the plan graphics, Stillwater
has an excessive number of "major" streets for
historical reasons and the severe topographic
conditions affecting the street layout possibil
ities. Major streets are those which carry
traffic from neighborhood to neighborhood as
contrasted to "local" or "minor residential"
streets intended primarily for access to individual
homes and lots. This means that more streets
carry heavier traffic than would be normal for
a community the size of Stillwater.
The existing street systems "works "; that is it
functions rather well except in the Central Business
District where bridge traffic and turning movements
cause severe traffic congestion at certain times.
One problem is that of drivers picking alternate
routes to travel about the City since many major
streets are not direct and some "meandering" is
required even to stay on designated major streets.
This results in some added traffic onto minor
167
residential streets having neither.an origin or
destination on that street.
Another problem is that of very short blocks
in many areas of the City. This results in more
intersections and accident potential. Further,
more than necessary acreage is consumed by
streets due to the short blocks with only a few
homes per block frontage.
Considerable improvement in the major road system
has been made since 1961; major improvements have
been made on Highway 212/36, Highway No. 96, 95,
various County Roads, and certain City thorough-
fares.
It is unfortunate, however, that the new street
pattern in the Croixwood Housing Addition did not
provide very well for a north /south oriented major
or "collector" street taking traffic north out of
the subdivision to new County State Aid Highway
No. 12; the road provided in the subdivision
design is very indirect and poorly designed for
its actual function.
A discussion of Downtown streets and problems is
contained elsewhere in this Planning Report.
Citizen surveys indicate that this is the only
major traffic problem in the City although some
note specific local deficiencies and documented
problems along Highway 212 at the south border of
the Community.
It is rather difficult for strangers to the City
to find their way around due to the lack of thru-
streets, not clear street route designations and
directions for utilization of major streets, and
confusing street names and numbers. In some
cases, a single street will have different names
depending on the portion traveled. In short,
options are available for selecting streets to
travel through the City and intended major streets
are not clearly labeled as such by signs or other
devices to aid traffic movement and consequently
give better protection to intended minor resi-
dential streets.
Some streets, such in the north area of Still-
water, have severe grades and are very narrow.
In the bulk of the Community, however, streets are
in relatively good condition without severe grades
except in the Downtown Area.
168
Oasis Avenue in the vicinity of Highway No. 212
is a designated major street; it is lined with
"strip" commercial and industrial development with
numerous access drives leading to greater congestion
and traffic hazards than desirable.
Traffic movements
in the vicinity of
has been difficult
however, now under
in response to the
and safety needs.
from and onto Highway No. 212
strip commercial development
and hazardous; improvements are,
construction (July, August, 1979)
need for traffic circulation
Due to very irregular City boundary lines and
relationship of streets and land uses to Stillwater
Township and Oak Park Heights, a high degree of
coordination and cooperation in the proper
planning and development of streets and highways
is very important. It is essential that the St.
Croix Valley communities cooperate in planning
for a proper system of local, collector, and minor
arterial system within the area properly related
to land use and the Metropolitan System.
Transit
The Metropolitan Transportation Plan assumes that
transit and paratransit will play an increasingly
important role in the regional transportation
system by augmenting the capacity of the Metro-
politan Highway System.
Bus service is provided to and about the Still-
water and Bayport area. The provision of express
bus service to the Free Standing Growth Center and
improved service within the Community is of high
priority in the Metropolitan Transportation
Policy Plan (as per System Statement Page No. 6).
No transit service is planned for the surrounding
rural service district.
Miscellaneous Transportation
River - Pleasure boat traffic of all types and
in heavy volume is present; Stillwater and the
general area on both sides of the River have
marinas and launching (public and private)
facilities for various private pleasure craft.
Seaplane operations are permitted and their
is some barge traffic. A large, commercial
pleasure boat carries excursion traffic during
summer months. Traffic is so extensive that
on- the -water patrols are maintained by the
Coast Guard and County Sheriffs of both
Washington County and from the Wisconsin side.
169
Pedestrian - Although Stillwater is an ideal setting
and environment for walking and jogging,
sidewalks are not present in some areas and
a developed trail system (long advocated)
does not exist off the public road system.
Additional sidewalks are needed in some
areas and improvements are needed for some
walks in the older areas of the Community.
Even the Downtown has an environment highly
conducive to pedestrian traffic; however,
only typical commercial sidewalks are provided
and few amenities such as rest benches and
shade trees are provided. Pedestrian movements
from the commercial area to the nearby resi-
dential areas, parks, and River are less than
ideal and even difficult in some cases due to
steep terrain, walks -in poor condition, con-
flicts with railroad spur lines, and other
problems.
Bikes - A County bike (non- motorized) trail
system recently developed with paved surface
away from the traveled roads extends into the
City from the north and west via County State
Aid Highway 12, County Highway 5 (STonebridge
Trail), and County Highway No. 64; this is part
of the excellent bike trail system developed
recently through much of Washington County.
Plans are being made for a regional trail
system extending into Oak Park Heights and
Bayport. The existing Country View Bike Trail
is a State trail corridor partly in the City
and partly in the Township; it connects the
cities of St. Paul and Stillwater. Within
the City, the bike trail is along and on
existing street pavement with routes marked by
signs leading to the Downtown. Some trails have
been provided in the Croixwood Addition for
bikes and pedestrians.
Railroad - The City is served with freight trains
for local business and industry. No passenger
service is available. For the most part, the
location of rail lines is not in conflict with
adjacent or nearby residential or other uses;
excessive and unused spur lines in the Downtown
are a problem as well as some traffic problems
created by trains on the main line.
2. Recreation Open Space
There are no existing or proposed metropolitan park
facilities located within Stillwater nor immediate
vicinity. The City and area are, however, blessed
with the magnificent St. Croix River, the scenic
high bluffs, ponds and lakes, wooded areas, scenic
vistas, and both public and private open, green
170
spaces.
Open green space, parks, playgrounds, and other
types of recreation open space are mapped on the
various plan graphics. While significant progress
has been made in the provisions of public parks and
playground area since 1961, much remains to be done.
City Parks and Playgrounds
Areas maintained
High maintenance areas:
Pioneer Park - 2nd & Laurel Streets - 1 acre.
rest rooms, picnic tables, fireplaces,
drinking water, band shell, swings, slide,
merry -go- round, scenic view of the valley.
Lowell Park - St. Croix river frontage - 2 acres.
rest rooms, picnic tables, flower beds,
river front fishing, launching, drinking water,
community gathering area, scenic view,
adjacent to business district.
Lily Lake Recreation Area - South Greeley Street
at Lily Lake - 14 acres.
League softball field, womens' softball
field, 3 tennis courts, basketball court,
(all lighted), swimming beach, boat
launching area, parking lot, indoor ice
arena
Croixwood 7th addition park - 15 acres. Northland
Avenue & County Road 12.
League softball field, 3 lighted tennis courts,
free -play area, playground area, 2 skating
rinks, warming house, parking lot.
Medium maintenance areas:
Washington Park - Greeley and Churchill Streets
2'-, acres.
Ball field, picnic tables, swings, see -saw,
slide, spring animals, free -play area.
Meadowlark Park - Crestwood Terrace & Interlachen
Drive - 2 acres.
Ball field, tennis, basketball, swings,
skating rink.
171
Ramsey -Grove Park - Myrtle, Ramsey & Grove Streets,
12 acres.
Ball field, tennis, basketball, swings,
skating rink.
Staples' Field - Martha & Wilkens Streets, 2 acres.
3 tennis courts, ball field, skating rink,
warming house, swings, see -saw.
South Broadway Triangle - 2 acre - Willard
and Broadway Streets.
Swings, slide, see -saw, basketball, free-
play area, skating rink.
Schulenberg Park - 2nd & Hazel Streets, 2 acres.
Ball field, skating rink, swings, slide.
Minimum maintenance areas:
Kollines Park (formerly Legion Beach) - 49
acres including north side of bridge.
Picnic tables, grilles, swings, slide,
see -saw, fishing, scenic area.
Sunrise Park - Sunrise Avenue & Parkwood Lane
82 acres.
Tot -lot, playground area, ball playing
area, picnic tables, groves of spruce and pine.
Open area #1 Croixwood - 132 acres. entrance S.W.
end of Nightingale Blvd. 6 acres open,
balance wooded.
Open area #2 Croixwood - 62 acres. Entrance near
Marine Circle. Spruce and pine groves;
borders bay on Long Lake.
Open area #3 Croixwood - 14 acres. Entrance off
nightingale Blvd. & Northland Avenue.
3 acres open, balance hardwood; borders
Long Lake.
Open area #4 Croixwood - 32 acres. Narrow strip
between Northland & Fairlawn. Drainage
area and bluff.
Open area #5 Croixwood - 32 acres. West of Northland;
south of Interlachen. Unaccessible, waist -
land, drainage pond.
Miscelaneous maintenance load:
Old Court House grounds, steps, sidewalks,
parking lot, public library, interior and
grounds.
Old prison site (state property) north Main
Street. Historical marker.
172
Equipment Inventory
Shop
1 portable air
1 rotary mover
1 gen. purpose
1 arc welder
assorted small
compressor
blade grinder
grinder
tools
Automotive
1 - 1971 Chev. 3/4 ton pickup with snow plow
and dump box.
1 - 1975 Dodge 1 -ton with electric winch and
dump box.
1 - reconstructed army weapons carrier with
4 wheel drive, 100 gallon water tank and
gasoline engine- driven pump.
Grounds Maintenance
1 - Hesston 20 hp. turf tractor with 80"
mower, 2 -stage snow blower and cab.
1 - John Deere 16 hp. lawn tractor with 48"
mower, front blade, snow blower, rotary
broom and cab.
1 - Jacobsen Rogers turf and trash sweeper.
5 - Jacobsen 21" self - propelled mowers.
1 - Craftsman high- wheeled self - propelled mower.
1 - Ford industrial Diesel tractor with bucket
(also used
by public works
dept.)
1 - Blade for
3 point hitch on
above tractor.
1 - Ford 7 ft.
flail mower for
above tractor.
1 - Earth auger
for above tractor.
1 - Hydraulic
tree transplanter
adapted to
work off above
tractor.
1 - Landscape
rake for above tractor.
Miscellaneous Equipment
1 - Cement mixer.
1 - 2000 watt portable generator.
1 - Fertilizer spreader.
1 - turf aerator.
2 - Field markers (chalk)
1 - Thatcher - mulcher
1 - Leaf shredder.
2 - Hudson power sprayers.
1 - Pump can sprayer.
Assorted hand tools.
Assorted hoses and sprinklers.
All flowers for Lowell and Pioneer Parks are
started from seed in a flourescent lighted green-
house located in the park headquarters building.
173
Remarks
Vandalism continued in recent years in both Pioneer
and Lowell parks, although not as severely as in
the past. The bank shell was set afire with
damage to the rear wall, roof, and electrical
system. The toilet in the mens` room at Lowell
park was also destroyed. At Kolliner Park, crowds
became so unruly, the park entrance was sealed
off with an earthen beam. Arrangements are
being made to have the park policed, a gate in-
stalled and locked every night.
Playground equipment was installed at Sunrise
Park in Croixwood. The groves of spruce and pine
trees and the clearings in between serve to isolate
one kind of activity from the other. One clearing
was made into a tot -lot with the installation of a
set of junior swings, two spring animals, a whirl
and a bench. Another area was made into a play-
ground with an arch swing, slide and see -saw.
Three picnic tables were installed on concrete
slabs along the shore of the adjacent pond.
Another clearing will be used as a ball playing
area with the instllation next spring of a back-
stop. Trails connect these various areas.
The Croixwood 7th addition park was finish - graded
and topsoil applied in the outfield area. The
banks dividing the upper and lower levels were
badly eroded by the spring rains but have finally
been stabilized with a hydromulch seeding and a sod
berm along the top. A small building was moved
in to serve as warming house and storage shed.
In late fall of 1978, contracts were let for
bituminous coating of the tennis courts and parking
area; fencing of the tennis courts and outfield;
and electrical installations. Two skating rinks
have been built which are being used.
The City owns islands in the River which are utilized
for camping, canoe and boating rest stops, picL.
nicing, and the like. These islands are mostly
sand with some vegetation and are subject to
periodic flooding.
While the City has a large number of parks and
playgrounds, there are still some problems.
1. Some parks and playgrounds are not fully
developed. For example, the playground area
in Dutchtown Neighborhood needs considerable
improvement.
174
2. While existing park and playground areas
are rather well distributed in relation to the
residential neighborhoods served, some are
of insufficient size, poorly located, and
underdeveloped. The "quality" and nature of
improvements is not well distributed (See
Citizen concerns and suggestions in Appendix
to this Planning Report).
3. Extensive and wooded ravines, wetlands, ponds,
and the like are in private ownership and not
utilized for public enjoyment to the extent
they might -be under City ownership and improve-
ment for trails, passive recreation, nature
study, scenic view protection, and the like.
4. The City does not have a large, multi-
purpose City Park on level land; such a facil-
ity has been considered for acquisition by the
City Council and need has been expressed by
citizens.
5. City park land on the Wisconsin side of the
River is only partially developed for public
use and problems of maintenance, policing
and the like have been encountered. Shoreland
north of the bridge has problems of trash
dumping, erosion, and others. City owned
shoreland on the Minnesota side of the River
is only partially utilized for park purposes
(Downtown) with shoreland to both the north and
south leased for private use (marina and barge
terminal).
6. The majority of citizens via the Planning Survey
Questionnaire rated recreation facilities and
programs from good to excellent although
specific area improvements were suggested.
(See Appendix for citizen comments, suggestions,
and evaluation of recreation open space).
7.. Specific citizen concerns have been expressed
over recreational use and opportunities at
various lakes such as Lily and McKusick.
8. School District recreational facilities and
programs have been given a very high rating
by the citizens for the most part.
9. The City has an excellent private golf course
and another has been proposed along with some
related recreational facilities which may
have access to the public.
175
10. Open recreation spaces retained in the "r
Croixwood Addition are desirable but
some are not well suited for active
recreational use due to size, shape, and
physical characteristics such as slopes and
wetland. They do, however, add to the aesthe-
tics of the neighborhood environment. A
good portion, but not all, of the Long Lake
shoreline has been retained for public
access and use.
11. Some of the ravine land is owned by the
City but not utilized for public purposes
other than utility installations.
12. Large areas of open, vacant land are owned by
the City and School District (vicinity of
McKusick Lake) which has good potential
for recreational use.
While the City has provided a wide variety in
types and locations for recreational open space,
many of the sites are too small and some are in
pieces separated by streets. The majority of
citizens do, however, rate the facilities and
programs good to excellent while noting that
improvements are needed in specific areas.
Great progress has been made in the past 20 years
but the full potential for recreation open space
has not been reached by a large margin. The
primary obstacle to better utilization of this
rather vast potential is available funding for
acquisition, development, maintenance, policing,
and program staffing.
3. Utilities
Maps showing all public utility installations
and service areas are provided as part of this
Planning Report. All utilities are provided but
some areas have not been provided service due to
construction problems and costs involved.
The City of Stillwater sewer system construction
was started in the mid 1880's. Similar to many
river communities of that day, the sewer system
was constructed as a combined system carrying
both domestic sewage and storm water runoff to
several outlet points in the St. Croix River.
In 1959 the City of Stillwater undertook to construct
an inteceptor sewer, pumping station and a waste-
water treatment facility to treat the normal domestic
sewage flow. Part of this design was the construct-
ion of 10 diversion structures which would allow
excess flows, as a result of rainfall or snow melt,
to bypass into the St. Croix River. The waste-
water treatment facility was expanded in 1968.
176
In 1970 a report was prepared on the combined
sewer system and considered various means by which
the bypassing of combined wastes into the St.
Croix River could be eliminated. The recom-
mended method was that of constructing a storm
sewer system. This was accomplished in 1972
through local funds and a grant from Housing and
Urban Development. Following construction of the
storm sewer system, the City of Stillwater then
passed an ordinance making a connection to the
sanitary sewer system mandatory and prohibiting
roof drainage or other extraneous flows into the
system. The majority of the residential storm
water connections to the sewer system were
removed. About one -half of the downtown business
roof drainage systems were also removed and the
other one -half remain connected to the system and
are the major point of inflow into the system.
Another area of inflow comes from three catch
basins which remain connected to the sanitary
sewer system. One will be removed at a future
date when storm sewers are constructed in that
service area. The other two are in locations
which make their elimination virtually im-
possible. However, the tributary flow to these
basins is minimal and does not represent a
significant problem.
The Metropolitan Waste Control Commission acquired
the wastewater treatment facility in 1966. The
City of Stillwater continues to retire the bonds
with its funds for the original plant bond issue.
The last of these bonds will be paid up in 1984.
Payments on those bonds act as a credit against
the user charges billed the City of Stillwater
based on sewage flows.
Sewage flows are a concern of the City in that the
current flows are approximately two times those
which should occur from a community of this size
with only one business with any significant
wastewater flow (the Maple Island Creamery). It
is believed that the system infiltration occurs
within the downtown area between the west bank of
the St. Croix River and North Second Street and
between Nelson Street and Elm Street. This
infiltration and the inflow from the commercial
businesses remaining connected to the sewer system
rob the sewer system of needed capacity for
future expansion.
177
A part of the sewer system separation con-
structed in 1972 was the closure of the 10 bypass
structures such that bypassing of combined wastes
to the St. Croix River could not occur. Also, the
separation of the system provided substantial
reserve capacity in certain trunk mains for use
in expanding the system for service of not only
areas within the current city corporate limits but
areas lying to the west of the city in Stillwater
Township.
The Comprehensive Sewer Plan approved by the
Metropolitan Council June 22, 1972, and the
Amendment thereto approved on May 12, 1977,
addressed the question of reserve capacity created
through the separation of the system. The
limiting factor determined at that time was the
portion of interceptor between East Myrtle Street
and East Mulberry Street. The estimated
domestic sewage flows tributary tp that reach of
interceptor is 3.12 cubic feet per second (cfs)
and the interceptor has a capacity of 14.0 cfs
or a reserve of 10.9 cfs. Converting 10 cubic
feet per second of domestic sewage flow to a
potential area of service based upon 10 people
per acre and 100 gallons per capita per day with
a peak flow for interceptors of 2.5 times average
daily, flow results in the potential for serving
an area outside the City of Stillwater of 2,810
acres or 4.4 square miles. This is roughly the
current unsewered area west of the city between
Trunk Highway 212, Trunk Highway 96 and County
Road 15, exclusive of the Brown's Creek ravine
area within sections 20 and 21, T.30N., R.20W.
This area was eliminated from the amended Compre-
hensive Sewer Plan in May of 1977 as a potential
interceptor route because of the environmentally
sensitive location. The alternate route proposed
was to follow Boutwell Road with the interceptor
from the juncture of Boutwell Road and the Northern
Pacific Railroad tracks northwest of the City of
Stillwater. This route would cause the area to be
tributary to the Mulberry Street Trunk which
discharges into the interceptor system at Mulberry
Street. It is at this location that the 10.9
cfs reserve capacity exists.
The foregoing capacity problems assumes the
elimination of storm and groundwater infiltration
(I /I) from the system. Achieving total elimination
is not possible. It also assumes the periodic
expansion of the wastewater treatment facility
serving the City of Stillwater.
178
In 1984 studies will proceed on consideration of
discharging the sewage from Bayport into the
Stillwater wastewater treatment facility. At
that time, or prior to that time it will be
necessary under current Environmental Protection
Agency (EPA) requirements to establish the level
of inflow /infiltration in the system and
whether or not it would be cost effective to re-
novate the system to eliminate such flows.
Areas without sanitary sewer include portions of
the Dutchtown Neighborhood and bluff line de-
velopment on roads north and south of the
Downtown.
Flooding has been a periodic problem in the
Downtown and the need for a River flood protection
dike has often been discussed. In recent years,
high water levels have been experienced on some
lakes. Plans have been considered for pumping
excess water from Lily Lake to nearby McKusick
Lake.
Solid wastes are collected and deposited in a
sanitary land fill in Wisconsin. This system may
be adequate only until about 1990 when a new disposal
site might be required. A waste transfer station
is locsted to the rear of the City Hall.
4. Community Facilities
Stillwater has a wide variety of miscellaneous
community facilities of both a public and quasi -
public nature. This includes a clustering of
churches, the Old County Court House Museum,
schools, and other institutional uses on the bluffs
just above the Downtown.'
Churches are scattered about the Community and
generally blend well with the surroundings and
contribute to, rather than conflicting with
nearby homes and other uses. These and various
other "quasi" or "semi" public uses add to the
charm and completeness of this "River Town or
Village" atmosphere and environmental image.
There are both public and parochial schools.
Facilities are generally good, with some ex-
ceptions, and located on adequate sites. There
is an excellent High School Facility. Unlike
in years past, elementary schools are now rather
well located in relation to neighborhoods served.
179
Some significant community facilities include:
City Hall, Fire and Police Station.
This is an excellent and quite adequate
facility well located. Annexation of land
to the west may, however, require a new
fire station to the west of the present
facility.
Health services are provided by the
local Hospital.
New County Court, Office, and Sheriff's
facility have been constructed at the
City's southern border adjacent to
Oak Park Heights.
Excellent Country Club and Golf Course.
Cemeteries (adding to scenic and open
space qualities).
A good City Library (although requiring
a good share of the total City Budget).
Radio Station.
Clubs, Lodges, and Fraternal Organizations
and buildings.
A very good Post Office well located.
Museums and historical sites and structures.
Scenic overlooks.
Nursing Homes.
Numerous Others.
All of these combine, along with striking
architecture in some cases, to provide a truly
"urban" community with a full range of services
geared to the size and type of Community present.
With few exceptions, these community facilities
are of a scale and nature which adds to the "River
Town" flavor of the desired "Village" environment.
Facilities and services are such that additional
population can be served but within limitations
to be imposed by various growth and expansion
policies noted elsewhere in this Planning Report.
B. Policy Plan
Plans for various elements of the City are all
inter - related and coordination is necessary if
all the "pieces" are to fit and function properly.
180
For example, the policy plan for facilities is highly
related to plans for land use and housing.
A comprehensive municipal plan cannot be well
understood nor be properly implemented unless
all the parts are considered together. No
single element of the Plan may be considered
singly and alone remote from the others. For.
example, a proper transportation plan cannot be
developed properly if it is not related to.plans
for future land use which will generate the traffic
volumes to be accomodated. Public facilities
and services cannot be planned without knowledge
of population need projections and potential sources
of funding including assessed valuation provided
by various land development types.
Plans in this section of the Planning Report
are based upon and related to various plans noted
in Part II as well as other considerations.
1. Transportation
Major transportation plan proposals are as
follows:
a) See Downtown Plan section of this Planning
Report for central area transportation needs.
Also see Joint Powers Area Plan section
for road and other improvement needs in much
of the southern portion of the Community.
b) It is essential that plans of Oak Park Heights
and Stillwater Township be highly coordinated
with those of the City, County, State, and
Metropolitan Council.
c) All local transportation systems should be
designed for adequate local service and to
relieve pressure on Metropolitan systems to
the extent feasible and practicable.
Of major importance is the planning of a
"Free Standing Growth Center" with maximum
local employment opportunities to minimize
commutor traffic to and from the Central
Cities during peak hours.
d) A new bridge across the St. Croix River to the
north or south of Downtown Stillwater should be
constructed sometime after 1990; this facility
is needed as a long -term solution to Downtown
traffic congestion and improvement of regional
and interstate travel.
e) The number of streets designated as "major
streets" intended for inter and intra -city
movements should be reduced; the services of
a traffic engineer are needed for proper
designation, signing, routing, intersection
improvement, and the like. The main
consideration should be to encourage the use
181
of fewer streets for thru- traffic by making
it easier for drivers to find and follow the
routes designated for a thru - traffic function.
Except for new development areas in proposed
annexation areas, no new major streets are
proposed for construction.
f) Study should be given to the closing of some
streets to reduce the number of street inter-
sections, reduce accidents hazards, and reduce
the amount of land devoted to street useage.
g) Improvements should be made to various local
streets, particularly in the north part of
the City, to improve access to individual
lots, remove dead -end situations, ease grades,
provide surfacing and curb and gutter (to
control erosion), and improve access to the
major street system. For example, access to
Highway No. 95 north of the Downtown is now
hazardous and difficult at best.
h) Street signs and graphics for directional
purposes need considerable improvement;
assistance from a traffic engineer is
required for the best possible results.
j) Access drives onto all major streets should be
controlled and regulated in the manner now
being utilized in the Joint Powers Area.
Excessive driveways onto the major street
system adds to congestion and hazards from
turning movements and other causes.
k) Where possible and feasible, all major streets
should be of a uniform width and pavement
condition for ease of travel.
1) Major road designations are as shown on the
Plan Graphics which indicate the need for
constructing a major new north /south route
west of McKissick Lake along with a system
of new local collector streets serving the
potential new neighborhoods.
m) It is recommended that no further consideration
be given to the construction of a major north/
south route to serve as a "by- pass" of the
Downtown. This is not very practical and does
not solve the major congestion problem caused
by existing bridge traffic.
n) Consider the use-of one -way (pairs) streets
to accomodar_e major east /west and north /south
thru - traffic movements with advice from a
traffic engineer. This may help to solve the
problem of driver confusion, intrusion of
traffic into residential areas, reduce the
need and desirability of using alternate
routes.
o) In the future as funds permit, eliminate many
of the major street "jogs" (off -set inter-
sections) by acquisition of corner lots to
provide for street re- alignments.
182
p) Consult with the Fire and Police Departments
on specific street improvement needs to be
included in the five year Capital Improvement
Program and budget as well as longer range
needs.
q) Local and express bus service improvements to
the Central Cities should be encouraged from
the Transit Commission. Hopefully, local bus
or other mass transit service will assume more
importance with fewer and fewer people
commuting to jobs in the Central Cities.
r) Transportation planning efforts in the Joint
Powers Area should serve as a guide to
application throughout the City.
s) River traffic is a matter of concern beyond
the sole jurisdiction of the City; two States,
two counties, and Federal interests are involved.
Stillwater should be a leader in the coordination
efforts required.
t) Pedestrian and non - motorized vehicle circulation
facilities should be given much higher
emphasis and priority than in the past.
Total environmental as well as energy consid-
erations are involved. In addition to
improvements in the Downtown and older
residential neighborhoods, sidewalks should
be installed and improved throughout the
City. A complete and inter - connected trail
system should be developed as part of a lineal
park and open space system utilizing the
ravines, existing parks, cemeteries, and other
similar lands and acquisition as necessary
to complete the missing links. All neighbor-
hoods and points of interest in the City should
be connected by a developed trail system.
Where possible, bike trails in and thru the
City should be developed independent from
the traveled road system; care must be taken,
however, to avoid conflicts between pedestrian
and bike movements.
u) Railroad trackage should be consolidated in
the Downtown Area to improve circulation
movements, add to the environmental quality
of the area, and be put to public use.
v) The Capital Improvement Program and Budget
should include those specific local improve-
ments deemed feasible and desirable by the
City Council as suggested by the Citizen
Planning Survey Questionnaire.
While improvements are needed, the basic trans-
portation system in Stillwater is sound. Citizen
183
irritation with traffic is centered heavily
upon Downtown congestion and parking problems.
If significant Downtown improvements were made,
remaining transportation problems of concern to
the citizens would be very minor by comparison.
(See Appendix)
2. Waste Management and Utilities
Sanitary Sewer
The logical plan for expansion of the Stillwater
sewer system to serve areas within the city and
without is predicated on, first of all, the point
at which reserve capacity exists and secondly
upon the topography which will dictate the route.
The rate at which such expansion would occur is
dictated by the potential growth within the City
of Stillwater and adjacent area.
The City of Stillwater has been designated as a
free standing growth center within the Metropolitan
Development Guide. It is recognized that free
standing growth centers can provide necessary
urban services. The manner in which these
services can best be provided will dictate where
that growth can first occur. The Metro-
politan System Statement for the cities of Stillwater
Bayport and Oak Park Heights and Stillwater and
Baytown Townships included population forecasts,
household forecasts and employment forecasts.
It is significant to note that during the period
of 1976 through 1990 there is significant growth
estimated for the City of Stillwater. However,
the household forecast exceeds land availability
capacity; the City of Stillwater currently has
only about 40 vacant lots for development within
the corporate limits. Two subdivisions recently
(1979) made moves towards annexation to the City.
One included a golf course with approximately
400 dwelling units and a second was 78 acres in
size which could include in excess of 100 units
on an urban development. Based upon the
foregoing and other proposed developments in and
near Stillwater, it may be that the 1990 Metropol-
itan Council expansion estimates are somewhat
conservative.
Logical Expansion Program
Plan Graphics indicate the logical expansion of the
City of Stillwater sewer system to serve abutting
unsewered areas which potentially will grow in the
foreseeable (1980 -90) future if population fore-
casts and housing unit forecasts are relevant.
The system must grow in the northwesterly,
westerly, thence southerly direction in order that
184
the growth would be radially outward rather than
a leap frogging type growth crossing large areas
of undeveloped land. The estimated year for
various expansion elements and the boundary of the
final 1990 expansion is also shown on the Plan
drawings.
Also shown is the estimated 1985 sewer system
expansion to serve an area within the current city
limits near Brown's Creek ravine in north
Stillwater. This is the major area within the city
that is currently unsewered. Lakewood Terrace,
a development on the bank of the St. Croix River,
has had severe on -site sewage problems because of
the bedrock located in this area which makes the
on -site sewage disposal system nearly impossible.
Additional expansion of the sewer system is shown
in the vicinity of County Road 5; this expansion
would be an extension of the Stillwater Industrial
Park Development now currently being constructed.
Policies
a) As required by the Metropolitan Council
System Statement, the City has decided the
location and staging of development and
designed its local collection system to serve
this development. This proposed expansion
involves annexation of land in Stillwater
Township as indicated on the plan drawings
staged in 5 year increments (1980 -85 and 1985 -90).
Expansion will first occur to the northwest
and then to the southwest; this will result
in the ultimate City limits encompassing an
area to house between 20 to 25 thousand persons
bounded on the north by Highway No. 96, on the
west by County Road 15 (Manning Avenue), on
the south by Highway 36/212 and on the east
by the St. Croix River. It is believed that
potential sewer and capacity -could serve an
even larger area and population but this would
be in conflict with other established land use
and environmental goals and policy.
b) The City will remove all existing roof drains
from sanitary sewer systems and divert such
storm water properly into the storm water
drainage system. Projects to eliminate water
infiltration will add to the sanitary sewer
capacity.
c) City sewer service shall not be expanded to
serve developments in the Township unless
said developments are first annexed to the City
185
in accordance with the annexation and sewer
service extension plan contained in the City's
Comprehensive Municipal Plan.
d) No rural service districts are planned within
the existing or projected corporate limits.
All development must connect to the sani-
tary sewer system except in areas of rock
formations or other problem which make sewer
service economically or otherwise not
practicable or feasible; in such areas, on-
site sewage disposal and treatment will be
permitted only when soil conditions, lot
size, and other standards are properly met
(see Standards Section of this Planning
Report). Said standards shall comply with
PGA requirements and be enacted into the City
code. It is not anticipated, however, that any
additional development will be permitted
within the existing corporate limits which
cannot hookup to the sanitary sewer system.
e) Existing on -site disposal systems will be
monitored Qn a periodic basis (at least
once each year) by professional, certified
inspectors (available by contract from Wash-
ington County Planning Department). Proper
installation, regular maintenance, and
advice for proper use by owner will all be
accomplished in the program. Where practicable
and feasible, sewer service will be extended
to all existing development within the City
by 1990; where this is not possible (due to
cost, construction feasibility, etc.), proper
and adequate measures will be taken to assure
against ground water pollution, public health
hazards, seepage into the St. Croix River or
other water bodies or similar ill- effects
detrimental to the general public welfare. It
may be necessary in some severe problem areas
to require storage tanks to be pumped and sewage
hauled away for disposal elsewhere; such
drastic measures would be monitored frequently
for compliance.
f) The City will encourage and support all
efforts by the Township to properly plan and
regulate on -site disposal and treatment in
order to help assure against premature public
health needs for expansion of the City's sewer
system contrary to planned and staged extension
program contained herein. It is essential
186
that Township and City plans be properly
related and coordinated (this includes plans
by Oak Park Heights).
g) The City's sewer system should be used as a
"tool" to help protect water quality in the
lakes, ponds, drainageways, Brown's Creek, and
the St. Croix River.
h) It is assumed that treatment plant (Metro-
politan facility) quality and capacity will be
provided for reasonable and approved development
needs for the St. Croix Valley Community
(Urban service area of the Free Standing
Growth Center). It is further assumed that
Metropolitan Development Guide policies support
containment of primary growth within the
urban service area (includes provision of
sanitary sewer).
Solid Waste
Since the Wisconsin sanitary disposal site may not
be adequate beyond 1990, it is recommended that
Stillwater actively participate in updating the
waste management plan of Washington County even
if disposal in Wisconsin may be continued. Issues
of solid waste disposal including diseased trees,
hazardous liquid chemicals, radioactive materials
and the like are beyond the scope of local planning
and resolution; regional, cooperative efforts are
required.
Although there are problems with the waste
transfer station located at the City Hall, it is
popular with the citizens (see Appendix) and should
be continued or suitable alternate sites provided.
"Performance Standards" governing the use, storage,
and disposal of various waste types shall be
included in the Zoning Ordinance (see Standards
Section of this Planning Report).
Stormwater
In the past, the City has disposed of water via
storm sewers and even earlier by combined storm and
sanitary sewers. Some use has been made of
drainage into the cities lakes.
As expansion of the City's corporate limits occurs,
emphasis will shift from reliance upon storm sewers
to that of maximum "up- stream" water retention via
ponding, retention of marsh areas, and the like,
consistent with plans and policies of the Water
Resources Chapter of the Metropolitan Development
Guide. This will involve protection open space and
187
0
extensive public easements in all future plats for
storm water retention and maintenance purposes;
an example of this system is now being installed
in the Industrial Park and recently incorporated
into a proposed housing subdivision (annexation
area to northwest).
Miscellaneous
Staged land development can be provided with
water, gas, electrical, and other utilities as
needed. A new water tower in the Industrial
Park helpsassure adequate pressure for fire pro-
tection.
3. Parks, Open Space, Community Facilities
While Stillwater has a good and diversified system
of parks, playgrounds, open space, and
community (public and quasi - public) facilities,
improvements are needed. New and expanded
facilities will be required in areas to be
annexed. Primary plan proposals are as follows:
a) All public uses shall be properly located
as required for private land uses depending
upon their characteristics and affects upon
the environment. For example, public works
storage areas are "industrial" in nature and
shall be located in areas designated for that
land use type.
b) All public facility and service improvements
(new and expanded) shall be provided in
accordance with the long -range Capital
Improvement Program and Budget. This shall be
done in two phases:
1980 -85 All contemplated improvements will
be listed, assigned priorities,
and scheduled for implementation
by year to 1985.
1985 -90 Contemplated projects and potential
public service needs will merely be
listed without setting priorities
or assignment to any specific year.
1990 Plus - These improvements will be shown as
generalized future considerations on
the City Plan.
c) All public and quasi - public facilities shall
require a conditional use permit for proper
public review and comment, adequate review of
plans and comparison with applicable standards,
and imposition of conditions on the developmen4
operations, and maintenance as may be appro-
priate and in the general public interest for
compliance with environmental goals and
policies.
188
d) A new fire station will be required to serve
proposed annexation areas.
e) A new elementary school may be required to
serve proposed annexation areas in the future;
school plans, however, shall be developed and
indicated on the City Plan in cooperation with
the School District. Development of long -
range Capital Improvement Programs is re-
quired by law for both as well as mutual
review and coordination of school district
and City Plans. The School District will be
better able to project its needs following
receipt and review of the City's plans for
growth and staged development.
f) Steps towards acquisition of a large (40
acres or more based upon applicable recreation
standards) City Park with substantial amounts
of level land. This should be a multi-
purpose facility including a variety of
facilities for all age groups (full family
orientation). This would include both active
and passive recreational use. It may also
provide for city -wide activities and civic
events, a swimming pool, additional tennis
courts, facilities for age group 18 to 50,
and other "family" facilities requested by
results of Citizen Survey Planning Question-
naire (see Appendix). One or two more and
similar large city parks should be considered
in the future to serve population growth.
The first tentative site is located adjacent
to and north of the Industrial Park.
g) While City financial conditions are improving,
a policy of actively seeking State, Federal,
and other financial grants -in -aid will be
required to make significant progress in park
improvements and other community facility
needs. In any event, improvement of existing
facilities should have higher priority than
new facilities and services.
h) The great bulk of needed public land for a
variety of purposes (storm water ponding,
recreation, streets, trails, etc.) in proposed
annexation can be obtained by dedication
rather than purchase as part of the sub-
division approval process, conditions of
planned unit development permits, and other
such methods proven highly successful in many
communities.
i) Facilities and services for the elderly should
be studied for inclusion in the capital
improvement program to better serve an aging
population.
189
j) Private use (under lease arrangement) of certain
St. Croix shoreland owned by the City should
continue until all neighborhood parks and play-
grounds are fully improved and adequate funding
and staffing is available for proper develop-
ment, policing, and maintenance.
k) Parks in the Dutchtown and North Hill
Neighborhoods should be given high priority
for improvement (installation of play
equipment, landscaping, etc.), and expansion
of sites. Detailed planning is needed to
determine if recreational facilities can be
located on single parcels of land rather than
scattered, smaller sites separated by streets.
1) Equipment and program need studies should be
conducted in the Capital Improvement Programming
process. Care should be taken to properly
distribute facilities and services among the
various neighborhoods.
m) It is proposed to acquire and develop an
extensive system of lineal parks, open space,
and trails. In addition to the ravines
recommended for many years, other lands including
wetlands, ponds, steep slopes, backs of deep
lots, easements, and the like should be included.
In some cases, existing private land, schools,
cemeteries and the like may be utilized by
contract basis.
n) Community facilities and services will be
planned in greater detail with priorities and
funding methods set on a continuing basis each
year and always projected 5 years into the
future. This will give citizens the opportun-
ity to request desired facilities and services
to be programmed for some specific future year
when such projects cannot be included in the
current fiscal year budget under consideration.
In the current planning process, the City Plan
will be reviewed by all City Department heads
while helping also to develop the City's first
long -range Capital Improvement Program. In
this manner, community facility plans may be
augmented, and revised as deemed appropriate
prior to final adoption of the Plan
sometime during 1980.
190
PART IV. IMPLEMENTATION PROGRAM
A very basic factor is that concerning what use will be
made of the prepared City Plans. Ways must be found to
effectively utilize the plans. Too often in the past,
communities have developed comprehensive plans and then
failed to properly utilize them for guiding growth, devel-
opment, and environmental maintenance.
Another factor is that community planning is a continuing
process rather than a one -time project. The plans must be
continually reviewed, amended, and made more specific as
dictated by changing trends, conditions, and needs. Such
a process will eliminate any possibility of the plans be-
comming obsolete through neglect and lack of use.
The implementing program recommendations are now (Sept. 1979)
being developed with recommendations made during the next
few months. This will include the following outline with
various "tools" and programs to effectively carry out pro-
posals of the Comprehensive Municipal Plan. All materials
prepared will be submitted for review by the Metropolitan
Council, School District, adjacent communities, and others.
Public hearings in Stillwater will be conducted prior to
any action towards official adoption of the plans and im-
plementation program.
A. INVENTORY
An inventory and analysis is being made of all existing
Community development and maintenance programs including
codes and ordinances with assistance from the City Attorney.
B. PROGRAMS
(Now being developed for study and review)
1. OFFICIAL CONTROLS
(Codes and ordinances and other development and en-
vironmental maintenance elements now being studied
for adequacy).
2. CAPITAL IMPROVEMENTS
The following is an outline of the program now being
developed. It should be noted here that all elements
of the Comprehensive City Plan and proposed capital
improvements will be presented in final form on smaller
plan maps (on a neighborhood basis or even smaller areas)
for greater detail and clarity. Specific requests from
citizens as noted in the Planning Questionnaire will be
included as appropriate, feasible, and practicable.
191
CITY OF STILLWATER
Comprehensive Municipal Plan Updating
as'per requirements of
The Metropolitan Land Planning Act
LONG RANGE FINANCIAL PLANNING
All communities and school districts are required to prepare
a long -range Capital Improvement Program and Budget as hereinafter
described. The procedures and forms suggested here may be used
to assist in developing the 1980 City budget as well as planning
for major expenditures for a projected period to 1985.
Forms should be filled out by all Department heads and others who
normally develop the proposed City budget. In addition, any and
all persons should be invited to suggest various public needs
including potential long -range future needs.
Capital Improvements
Capital improvements programming involves: 1) identifying major
public facilities needed to serve existing development or to
support future growth, 2) determining when these should be provided,
and 3) deciding how to pay for them.
Programming capital improvements provides one significant way of
realizing comprehensive plans. Capital improvements programs do
this by developing methods to achieve projects identified in the
public facilities part of the plan, by specifying the timing and /or
staging of public facilities to support the sequence of growth
proposed in the plan, and by assuring that needed public facilities
will be available to support planned growth.
The Metropolitan Land Planning Act defines what a capital improve-
ments program includes and requires that one must be included in
the implementation program of comprehensive plans prepared under
the Act. The Act states:
192
"CAPITAL IMPROVEMENTS PROGRAM means an itemized program
for a five -year prospective period and any amendments thereto,
subject to at least biennial review, setting forth the
schedule, timing, and details of specific contemplated capital
improvements by year, together with their estimated cost, the
need for each improvement, financial sources, and the
financial impact that the improvements will have on the
local governmental unit or school district."
"IMPLEMENTATION PROGRAM. An implementation program shall
describe public programs, fiscal devices and other specific
actions to be undertaken in stated sequence - to implement the
comprehensive plan and ensure conformity with metropolitan
system plans. An implementation program shall contain at
least the following parts.
a) A description of official controls...
b) A capital improvement program for transportation,
sewers, parks and open space facilities.
c) A housing implementation program..."
The capital improvements program is directly linked to the land use
and public facilities parts of the comprehensive plan. These ele-
ments furnish important direction for the capital improvement
program. They indicate general public policy on the development,
redevelopment and maintenance of the community, and specific
direction on:
1) Community development needs.
2) Development management strategy that determines how
much development occurs where and when.
3) Road, water, sewer, storm drainage and parks facilities
and other projects requiring major public expenditures.
The local comprehensive planning process also involves
a fiscal analysis which includes.;
1) Analysis of service standards, methods of operation
and cost factors.
2) Analysis of expenditures during the past five years
and projections of expenditures for five years into
the future.
3) Analysis of past and projected revenue from sources
within the community and other potential sources such
as state and federal grants.
The objective is to produce a capital improvements program which
integrates the comprehensive plan's recommendations and desired
levels of public services with the ability of the community to
both pay for and maintain capital improvements.
193
Decisions on the timing and location of capital improvements can
influence the timing and location of future development. This im-
pact can be particularly effective in water and sewer utility
extensions. Several approaches have been used to guide future
growth through capital improvements. The basic objective is to
minimize the need for new capital investments and make the best
use of existing facilities for which investments have already been
made.
One approach links the time. and place for capital improvements with
the basic growth management strategy defined in the land use plan.
Development then responds to public facility investments rather than
extending public facilities whenever and wherever development
occurs.
Another approach designates urban-rural service districts to provide
for the orderly extension of public improvements. By using the
urban -rural service district designation, capital improvements
would be provided only for the urban district. This designation
means that major capital improvements would not be provided in the
rural service district and would make the best use of existing
public facility capacities in the urban district. The definition
of urban -rural service districts is based on the land use plan and
considers factors such as existing public facilities, the ease of
serving new areas, and any essential service needs such as an area
with failing on -site sewage disposal systems.
(Draft of Suggested Letter of Transmittal)
To: All Departments, Officers, Boards and Commissions
From: Office of the
Subject:Preparation of 19` to 19_ Capital Improvement Project
Schedules;
The governing body has requested that a report by prepared recommend-
ing a comprehensive program of capital improvements based on projects
for inclusion in the budget for the next fiscal year, and those
proposed for the four subsequent years. This report is to be
submitted to the governing body no later than , 19
If the long -range capital improvement program is to present fully
the situation concerning all public improvements, the information
provided upon which the program is based should be as accurate,
up -to -date and complete as possible for each project. Each depart-
ment is requested to analyze all projects that are contemplated for
the next five years and outline the nature of each, in accordance
with the instructions outlined in this manual. Your report should
be submitted as soon as possible, and no later than , 19_
Prepare your program of projects in the order of priority you
accord them, following this manual and utilizing the forms herein
described. Forms are available now upon your request. Be assured
of the wholehearted desire of my office and the Planning Commission
to cooperate fully with each Department in simplifying and expediting
194
the taks of preparing and reporting
The entire community stands to gain
of this program.
Cordially yours,
(Title)
on the capital improvement program.
by the successful undertaking
INSTRUCTIONS FOR FILLING OUT CIP FORMS
Every attempt has been made to simplify the forms and the pro-
cedures for developing a long -range Capital Improvement Program and
budget. Suggestions for change are, however, welcome and changes
may be made in the light of experience and actual use.
1.
The attached forms are to be filled out
and submitted to
by
19
2.
Similar forms are to be filled out each
year adding a
year to the program in the process with
additions and
changes made as desired and appropriate.
3.
A Form "A" is to be filled out for each
separate Capital
Improvement proposed.
4.
Each proposed Capital Improvement is to
be assigned a
"priority" rating; the simplified rating
scale to be
utilized is as follows:
"U" (Urgent) A project requiring immediate
action
due to public health needs
or other
"emergency" situation such
as flood
danger, faulty on -site sewage
disposal
and treatment systems, obstacle
to emergency
vehicle access, and similar
"emergency"
situations.
No. 1 A desired project (capital improvement) to
be included in the community's budget for
the next fiscal year (19 )
No`.s2 thru 6 (19 thru 19 )
Projects which may be deferred for at least
one year and then ranked by year suggested to be
considered for inclusion in the Community Budget
in order of importance as considered desirable
and appropriate.
195
"LR" (Long- Range) (Beyond 19 )
List all public improvements which may be
needed or desirable in the future but which
may be deferred for five or six years into
the future .(due to high cost, lack of funds,
insufficient public need at this time, based
upon future population growth, low ranking
in comparison with other listed public needs,
etc.).
Capital improvements are to include:
1. Any proposed major public expenditure but not to include
(unless specifically requested) the following:
a) Salaries, personnel needs, and other
similar cost needs.
b) Minor equipment and supplies such as
office supplies, desks and chairs, and
the like.
2. Primary Capital Improvements to be listed are as
as follows:
a) Any land acquisition, leasing, easement,
etc., proposed.
b) Any structural improvement proposed including
public buildings, recreation facilities.
c) Road improvements and maintenance needs (other
than routine annual maintenance).
d) Major equipment needs such as a snow plow,
police car, or grader.
e) Any utility needs such as public water,
sanitary sewer, storm sewer, electrical,
gas, or other.
f) Lake or stream improvement including
shoreland, dredging, etc.
g) Similar improvements generally designed
for a useful life exceeding one year in
duration.
196
FORM "A"
INDIVIDUAL PROJECT REQUEST DATA
Date
SOURCE OF REQUEST
Department
Division or Bureau
Person
Address _
Phone No.
1 . Name of Project
2. Location
3. Description: New
Project
4.
5.
"CIP No.
)Make no entry he:
Priority
Rating
(See Instruction Sheet)
Replacement Addition Other
to existing
Project
Status of Project:
Resubmission, Resubmission, No longer
unchanged modified proposed
Description and purpose of proposed facilities
6. Estimated cost: $
7. Proposed or suggested method of financing:
197
Not submitted
last year
FORM "B"
CIP No.
(leave blank - number
to be assigned by community
and keyed to map location)
FINANCIAL AND MISC. INFORMATION
Project Name:
Location:
Description:
Estimated Cost: $
Proposed Method of Financing (Describe):
Include in the above as may be appropriate:
a) Project includes construction and /or financing over a period
of more than one year (describe).
b) Source of revenue (income) such as user fees, admissions
charge, tax increment, rent, etc.) from project, if any.
c) Note if project will require any new or additional expenses
such as staffing (for example, a new playground that would
require a recreation director /supervisor).
Additional Remarks or Explanation
* Provide cost breakdown if possible to include sub -items such as con-
sultant or designs fees as well as actual construction costs.
198
FORM "C"
CAPITAL IMPROVEMENTS PROGRAM
PROPOSED 5 YEAR PROJECTS (19 to 19 ) PRIORITY RANK ORDER
Project Map Key Priority Description of Project Estimated
Name Reference* Ranking Project (type) Responsibility ** Cost
Note: List projects in order of priority assigned; include any "LR"
projects at the end of the listing.
* Include if and when known as assigned by Community.
** Public Works Department, Park and Recreation, etc.
199
Financing
Some agency, person, or the governing body should make a study of the
projected project costs as related to anticipated public income and the
potential effect upon Community finances. Such a study is required to
assist in proper scheduling of the projects and assigning priority on the
basis of "ability to pay ".
Model Enabling Legislation For Capital Improvement Programming
(Draft to be studied for legal adequacy)
NOTE: The process of referral is the procedure by which public
improvement projects and policies, which affect or are
affected by the physical development policy expressed in the
Comprehensive Plan, are referred to the Planning Commission
for recommendation prior to final action. It may be de-
sirable to establish a separate "long -range capital improvement
committee" to prepare recommendations; said recommendations
should, however, be reviewed by the Planning Commission.
This procedure will have the most immediate and creative
effect in the actual improvement and development of the
community in accordance with the Comprehensive Plan.
The adoption of enabling legislation, similar to that
which is suggested below, would establish a firm foundation
on which to carefully guide the development of capital
improvements.
AN ORDINANCE DECLARING THE PURPOSE AND
ESTABLISHING PROCEDURES FOR REFERRAL OF ALL
PROPOSED CAPITAL IMPROVEMENTS TO THE
PLANNING COMMISSION AND SPECIFYING DUTIES
OF SAID COMMISSION
BE IT ORDAINED by the
of
as follows:
of the
SECTION 1. PURPOSE. The purpose of this Ordinance shall be to make
available for consideration by the and
a well balanced program that shows the most urgent capital requirements
in order of their priority. Such a program, revised annually, will be
prepared by from the tentative programs of all
departments, with reference to their conformity to proposals contained
in the Comprehensive Municipal Plan.
SECTION 2. All departments, agencies and commissions shall report
to the their tentative program of capital
improvements for the next five years. Such reports shall be submitted
annually in a uniform manner and on or before a date specified
by
SECTION 3. The Planning Commission shall make an annual report to the
, reviewing and recommending the capital
improvement program as a whole, and each of its projects affecting the
physical development of the Community. This report shall be submitted
200
to the on or before the day
of
SECTION 4. The Comprehensive Municipal Plan shall be the guide for any
elements of the capital improvement program which affect general physical
development.
Adopted by the
19
(Seal)
Attest:
Notes:
this
Signed
day of
1. It is suggested that any and all persons in the Community may
recommend capital improvement projects. This may include individual
citizens, land owners, private recreation groups, civic clubs,
and others.
2. All projects should be included;
needed for many years and those
than being considered as being a
Also include projects which may
these would include items such a
against adjacent land owners.
even those which may not be
which may only be "desirable" rather
n urgent or critical public need.
not involve any public expense;
s street improvements assessed
3. Facilities should be proposed based upon some demonstration of
"need" when priority ranking is noted; for example, tennis courts
may be proposed for construction ahead of hocky rinks if the number
of persons who desire to play so justifies. Actual anticipated "use"
by residents of the Community would then be an important consideration
in the ranking of various projects.
4. The priority ranking is a judgment procedure and it may or may not
be necessary in the future to establish a more sophisticated, detailed
and comprehensive set of criteria and procedures for the ranking
of projects in the general public interest. (Refer to procedures
and criteria suggested by the Metropolitan Council and other sources
for additional alternatives).
5. It is not the intent of the Capital Improvement Program and Budget
to commit in any way any future governing body to the proposed
improvements or expenditures beyond the current fiscal year; the
intent, rather, is to provide an additional step in the community
planning process to better afford the citizens with an opportunity
to better and more fully evaluate current and potential future public
expenditures of a basis of need, ability.to pay, desire to pay, and
potential long -range financial affects upon the Community.
201
3. HOUSING
(Program for Housing Plan implementation being developed)
PART V. ADOPTION OF PLAN AND OFFICIAL CONTROLS
(Procedures and time schedule now being developed)
202
-1-
1979
Planning Commission APPENDIX "A"
Citv of Stillwater, Minnesota
DEVELOPMENV ENV I RONMENTAL
PLANNING SURVEY QUP.STIONNAIRE
(Summary of final Results)
The City Planning Commission is currently in the process of updating the
Comprehensive Municipal Plan in accordance with provisions of the Metro-
politan Land Planning Act. During the next few months, an updated plan for
future land use, transportation, community facilities, and other aspects
of our community environment will be prepared for discussion at a public
hearing yet to be scheduled.
Assistance was requested in this planning; process by citizen answers to the
following questions intended to obtain comments and suggestions for devel-
oping, maintaining, and preserving our community environment. The specific
purpose of this survey questionnaire was to assist the Planning Commission
and City Council to properly plan for the future of Stillwater.
Our Community Environment should be planned on the basis of actual needs
and desires of the City's population. In addition to answering the en-
closed questions, citizens may also, at any time, submit additional comments
and suggestions in writing or verbally by attending regularly scheduled
meetings of the Planning Commission. There will also be an opportunity
to participate by attending one or more public hearings to be scheduled
early in 1979.
Answers to the following questions along with additional opinions, comments,
and suggestions were provided by a total of 101 citizens from all areas of
the City during the summer and fall of 1978.
In Your Opinion:
1. Are existing recreation programs and facilities adequate? Yes 70 No 31
If not, how could programs and facilities be improved to better
meet your own personal or family needs or the needs of others
such as handicapped persons?
Need joint development of old dump with School District.
Indoor pool and community recreation center need at
North Hill site.
Better use of ravines and River front (bike, hike,
exercise trails).
Better accesss (pedestrian) to River (both banks).
Hiking, bicycle, and cross - country trails in ravines.
More ball fields for kids.
Up -grade ice arena for year around use.
More tennis and ball fields on :worth Hill.
Some areas OK, others not so good.
Croixside planned area needs our immediate attentions.
Add -- recreation area on North Hill.
More facilities for age group 18 -50.
-2-
Lighted ball fields.
More baseball fields and Hockey rinks.
Need place to go for 17 -21 year age group.
More recreation areas on North Hill.
Post hours skating rink house open - open at noon.
Get roller rink.
Improve Lilly Lake beach.
Improve McKusick Lake.
More tennis courts.
Clean swimming facilities.
More Parks, bike trails.
Outdoor swimming pool.
Raquet and handball courts.
Too much recreation located in old City; not enough in
newer areas.
Too little done in "Meadolark Park ".
Need swimming pool, recreation center, day use parks, tennis
courts, soft ball fields (with fences - backstops not
enough).
Public golf course (back of henry Amundson property).
Tennis courts.
911 weather track.
Finish park at Ramsey and George.
Swimming pool.
Up-to-date playgrounds with climbing equipment.
Childrens swimming pool.
"[dater babies" classes all year round.
Good facilities but not sufficient.
More for teenagers.
Too much for "select few ".
More parks.
Too much now.
Need outdoor swimming pool.
Tennis courts.
Bike trails.
Tot lots.
Closer to Croixwood.
More park land and picnic area on St. Croix north and south
of Lowell Park.
Expand and clean -up Lowell Park.
Have band concerts in Park.
Outdoor pool needed.
Need softball fields.
More for teenagers.
1. Taxes for City provided facilities and services and (check one) Too
High 33 Too Low 1 Don't Know 2 About Right 57
Comments:
Please don't raise taxes.
Taxes too high for level of services provided.
Lack of manpower for Park Department.
City spends money unwisely.
Should have planned improvement program rather than wait
until total deterioration requires improvements.
Homes too 'high; businc,ss Lo() Low.
-3-
Need trained administrators.
Hones of same value have differeuL taxes.
Be more efficient.
Lack of industry.
High in comparison to surrounding communities.
High for garbage pick -up.
Taxes too high in new areas as compared to old town;
old town.
Compares well with other communities in Twin Citites.
Better street cleaning needed.
Too few services provided for taxes paid.
Increase taxes only for inflation.
Poor service for taxes paid..
re- evaluate
3. The following are problems which should be given special study and
attention:
Storm Drainage 22
Pollution 15
Sanitary Sewer 6
Sidewalks 21
Downtown 38
Land Use 31
Taxes 35
Open Green Space and
Wildlife Preservation 41
Housing for moderate and
low income persons 21
Traff-ic 70
Housing for Elderly 27
Public mater 5
Parks 28.
Zoning 20
General Environment 4
Police and Fire 9
Other (specify) and comments on above:
Water Bodies and Shoreline 25
Housing for Handicapped 8
Cost of City Government 26
Tax Base 26
Street Maintenance 19
Playgrounds 12
housing 6
City Boundaries 18
Local Employment 15
Poor Building or Yard
Maintenance 29
Historic housing preser.vati.on.
Re -route traffic thru Downtown - DO something about this
known problem.
Lily Lake season too short and poliuted.
Municipal swimming pool.
Land Use Plan for architectural and historical preservation
and consistency of new development with preserved area.
Historic districts and preservation pianning.
Downtown traffic - poor and needs immediate attention.
Sidewalk and street tree improvements.
Poor cost effectiveness.
Too much emphasis upon recreation and luxuries.
Snow plowing.
weed cutting.
General clean -up (use teenagers).
Clean up parks.
Need left turn signal at Chestnut and Main.
-4-
Cut grass in yards.
Need public swimming pool.
Better separation between homes and business.
Trim trees over sidewalks.
Take chlorine out of water.
Put doors thru all stores in Downtown (for mall effect - weather).
Limit city boundaries.
Don't grant so many zoning variances, exceptions.
Need by -pass route.
Teen center (low cost).
No low income housing.
Condemn old houses (3rd & Myrtle across from new Post Office).
More play equipment for young.
Up -date fire equipment.
More police.
Better mosquitoe control.
Preserve St. Croix shoreline.
Paint Downtown buildings.
Public docking Downtown.
Relocate hockey arena and make park and swim beach.
Bridge congestion at Main.
Basement flooding in Downtown in tic.avy rain.
Improve River frontage north of bridge.
Improve Lily and McKusick Lakes (put park on north side).
Elderly housing building too tall.
Up -grade Lowell Park (landscape).
Enforce clean air act.
Put comprehensive plan into effect.
Re -route Wisconsin traffic.
More industry.
Stop River pollution.
Improve sewers in Dutch Town.
Study high cost of sewers.
Taxes too high in Croixwood.
Stop speeding on West Myrtle. (lower noise pollution).
Improve South Grove Street.
Deep City small.
Home maintenance bad but getting better.
Too much welfare.
Too much emphasis on low incumc people - lielp wage earners!
:iaintain Library grounds better - don't use as playground;_ better
library service and warmer atmosphere - Bayport is better.
Clean up Laurel Street areas.
Poor parking on North Third - Church should have own parking
and don't allow parking in no- parking areas.
Traffic noise (motorcycles, speeding, etc. ); adopt noise
regulations.
Library inadequate.
Combination walk and bike path on 95 from old prison grounds
north to Hazel Street; improve walks to and from Downtown.
Storm drainage on South Grove.
Remove parking from Main and Chestnut streets.
Too many restaurants (land use problem).
Protect Lily Lake.
Too many old, cheap homes used for welfare.
-5-
4. Do you have any specific or general areas of concern such as dilapidated
housing, run -down residential areas, inadequate commercial areas,
or the like? Yes 44 No 39.
Specify and Explain:
Beautifv Downtown sidewalks and parking lots.
Streetscapes (especially Downtown) are missing.
Maintain historic character and closeness to River.
Myrtle and 3rd Streets (poor housing opposite Post Office).
Ioo many commercial uses in residential areas.
Cut weeds and clean -up old Downtown areas.
Most things have been taken care of in past five years.
Poor Downtown parking and Highway 212 business will kill
CBD business.
No place to park in Downtown.
Improve community assets in North Hill crea (area ignored).
Improve general environment.
Topography promotes areas of visual beautification (flower
terraces), Dutchtown Area.
North and south entrances to City are eyesores.
Stray and loose dogs.
Trashy yards.
No more housing developments.
Preserve Downtown - no more edge -of -town sprawl.
Condition of sidewalks; tree branches, weeds (Hickory St.
running into North 4th).
Check conditions at 209 W. Myrtle.
CBD parking and traffic.
Renovate original town.
Cut expenses.
Iourism becomming a major industry.
Condemn old houses (3rd & Myrtle).
Clean -up Downtown and make pretty.
Homes and yards on Laurel Street are poor.
Check conditions on North Second from Wilkin to Sycamore.
More industry and tax base.
Check 3rd next to Library. (narrow street and poor area
conditions).
Downtown inadequate need growth to support business.
Poor housing areas - north hill and Dutchtown.
Junk cars.
Run down areas - mess - bad image for City.
Run -down, trash areas, poor maintenance (five similar - comments).
Iie up dugs. -
Improve Downtown like North St. Paul and White Bear Lake, (but
keep historical - nostalgia).
Junk cars southwest 2nd and William Streets (body shop ?).
S "pecialty shops are lovely, but need department store and
others.
Aiples junk yard on River.
Poor Downtown parking (three similar comments).
Weeds (-Martha and Olive and Holcomb and Olive).
Iraffic signal for pedestrians near Brick Alley.
Clean-up River shore and make nice park.
Poor vacant lots.
Empty, poor houses.
S. Are there any areas, facilities, programs, services, or conditions in
the community which you especially like and believe worthy of note and
perhaps serving as a good example to be expanded upon or•utilized
elsewhere in the community? Yes 48 No 12.
Specify and Explain:
Good Library services.
Snow removal is good.
Good Library services
Encourage renovation of CBD buildings.
River Town - pedestrians.
Good facility at Lily Lake.
Develop park at Croixwood.
School system programs for youth and senior citizens are good.
Lily Lake ice arena great asset.
RTR'S goals and objectives.
Interesting variety in old neighborhoods.
Unusual neighborhoods due to physical boundaries.
Surprising views and hidden vistas.
Volunteer programs (meals on wheels, senior program).
New restaurants and shops.
Aiple storage on levee - need as parking and improve entrance
to City (beauty).
Speeding noise at night.
Good work of restoration committee.
Good Police.
Pioneer and Lowell Park.
City and Water Board Property; Myrtle. and Mulberry and 3rd
and 2nd St. natural park,.artesian well overflow.
Oldtime look in CBD (three similar comments).
Expand CETA using local funds.
Make Street Department as efficient as Water Department.
Arbor Day - tree program.
Deep up interest in restoration, spruce -up in general.
New Bridge better for boats.
Quality of people (good).
Bike paths.
Expand Policy and Fire Departments.
Charm.
Quaint.
Country Village.
CVS Center (two comments).
Recreation services.
Good recreation program (two comments).
Preserve historical nature of area (two comments).
Self service car wash.
Lumbering days good.
Dump boxes at City Hall - good.
Bike trails.
Good police and fire.
Lily Lake - its Arena, tennis courts, sports facilities, beach
(three similar comments).
Generally impressed.
Summer program for kids.
-7-
Park and playgrounds (five similar comments).
More money on playground development.
Senior citizens center - noon meals, athletic programs..
CBD parking and lights on Main St. South end.
Lowell and Pioneer parks - good.
Improve Pioneer park with play equipment similar to park
near Washington School.
Gathering place for elderly in CBD - expand.
6. Please rate the environment:
a) Total community (check one).
Good 76 Fair 18 Poor 1
b) Area near your Home or Place of Business (check one).
Good 68 Fair 21 Poor 6
7. A new bridge across the St. Croix River is (check one).
Urgently Needed 45 Desirable 27 Not Needed 27
8. Further improvements are needed in Downtown Stillwater (check one)
Yes 92 No 6
If yes, check improvements you would consider needed:
Building appearance 33
Pedestrian Walks 18
Traffic 72
Other (specify) :
Parking 63
Merchandise Selection 10
River Frontage 29
Improve appearance and maintenance around parking lot and
old freight building.
Low cost shuttle transportation.
State and Federal historical preservation programs.
Pedestrian access to parks on Wisconsin side.
More controlled planning - need master plan.
Improve south entrance.
Landscape parking lots.
Improved municipal signs.
Better graphics and directional signs.
Re -route highway.
Moritorium on CBD building until plan is approved.
Improve street lights.
New fountain.
Get new historical lighting such as N. St. Paul and White
Bear.
Clean sidewalk on Main to the south of Wash. Co. Historical
Museum and correct water seepage on walk.
Building restoration (three comments).
Make alleys walkways - no parking.
Add rest benches, green areas.
Main Street one -way.
Restore to lumberjack era.
Give tax incentive for building restoration.
-8-
New bridge only.
Improve sidewalks, Main and Chestnut east and west.
New and old buildings should be consistent (for residents
not tourists).
Poor area across from Oasis Gas - a mess.
Where can tourist sleep?
Too many small, tourist type business' - too expensive for
average resident.
Left turn signal at 212 and Osgood.
Walk, don't walk, signal at Myrtle and Main.
CBD building improvement has been magnificent.
Need department store.
Longer evening hours.
By -pass route.
Don't cater only to tourists.
Take out parking meters.
Stop peddlers on Main Street.
9. Many people consider Stillwater as having unique and desirable
historical qualities; should these values be considered important and
given high priority for enchancement acid preservation in planning for
the future of our community? (check one) Yes 90 No 7.
If yes, how?
Tax incentives.
Setbacks, variety.
Mini- neighborhoods, historical areas.
Large yards, nice scale, sidewalks, street trees, hills.
State and Federal historical preservation programs.
Develop planning interest groups.
Properly mix old with the new.
Don't raise taxes on up- graded or preserved buildings.
Private basis only.
Preserve quality of life like program started in fall of 1976.
Discourage inappropriate architecture.
Increase size and number of parks and gree space.
Support RTR recommendations.
Architectural control of new buildings (two similar comments).
Bank out of place (architecture).
Keep government out of it.
Tax breaks (two comments).
Planning.
Historical buildings (two comments).
Don't obligate public for Nelson School.
Old timers knew what they were: doing.
`deed Main Street mall.
Restore all old buildings in DowntuW11 (six comments).
ot just for tourists and sightseerers.
By individual property owners.
Don't add improvements to detriment of taxes and service costs.
Support architectural survey.
Get State and Federal aid (if necessary).
Don't go overboard (like Courthouse).
Slow, gradual improvement needed; no crash programs.
Public support needed.
Limit City growth.
Historical preservation and up- grading (four comments).
Don't let it become a Bloomington ur Apple Valley (keep simple).
More small shops.
More tours.
Restore to lumberjack era.
Distinguish between history and nostalgia.
Building maintenance and remodeling.
Restoration (two comments).
Improve but don't increase taxes.
Be selective, don't go overboard, tear down old Nelson School.
High cost concern and handling (old Court House).
Keep old bridge - build new one straight east of Hwy. 212/36.
Court House, old homes, museum.
Law enforcement, curfew.
Large and low income family housing.
Better Citv maintenance.
Restore old prison site.
Require period architecture in specified areas.
Tax break for restored buildings of all types.
Control new building and remodeling.
Continue old town.
Limit height of new buildings (3 stories).
Historical preservation for future generations (six comments)
:,o Holiday station on Riverfront.
Get rid of coal bares (two comments).
Clean up fronts of buildings on Main Street.
Private donations and tax subsidy.
Renovation by private sector..
No more tax subsidy.
New and old buildings to be consistent (for residents
not tourists).
Make Rivertown tourist attraction Like Taylor Falls.
Add.plantings and flowers.
Aid in maintaining old buildings.
Improve sidewalks.
Improve vacant lots.
Designate historical districts.
Don't over- enforce building and oLhur codes.
Keep down big neon advertising signs.
Fix up old buildings - don't build new ones.
10. that, in your opinion, are the three most important things that should
be done to maintain or improve the physical, social or economic
environment of our community?
Develop industrial park for tax basa (two comments).
Low income housing.
CBD parking.
Small town atmosphere.
Support recreational and educational programs..
Historical restoration (homes and business)
Preserve natural resources and green areas.
I:_prove access- to Downtown.
Keen small.
Downtown traffic.
Control new housing dc•veIoprunLs,
-10-
- - River preservation (two comments).
Traffic on bridge - need new one.
Lower taxes.
Hold city boundaries.
`o more housing developments.
Be more selective in allowing development (housing and'the
mall, and Chestnut and Main).
CBD renovation.
Riverfront.
Keep city clean.
Develop community education department.
Treatment for adolescent, psych kids.
Condemn old buildings.
Plant new trees.
Bike trails.
No more sprawl.
Recreation (two comments).
Summer band concerts.
Elderly housing.
Low income housing.
Avoid sprawl.
Competitive business pricing for local buying.
Traffic down by Grand Garage.
Don't be prejudice to newcomers.
Increase recreation opportunities.
Large park on level ground (athletic complex).
Better residential street maintenance (spring and winter).
Adopt and use comprehensive plan (include historical districts).
Improve Lake McKusick.
Keep parks safe and clean.
Adult education.
Elderly housing.
Historic district covering most of City.
Re -route Downtown traffic.
Stop 1- family development and promote clusters at same density_.
Adequate social.
Good schools.
Encourage self- improvement of residential.
Make seedlings available to replace dead trees.
Attract more business.
Develop focal point for town - too many things going on now in
too manv directions.
Grants for RTR.
Keep public informed of more historical sites and projects.
Clean sidewalks in Downtown.
Zone land on Highway 36 to west agricultural.
Bring in industry.
C3D parking ramp.
Effort by stores to keep customers here.
Adequate recreation facilities.,
Improve CBD traffic.
Keep taxes in line.
Do not expand city limits.
-11-
Stop commercialization - not enough people to support it.
More clearly defined zoning regulations.
More CBD parking.
Planning.
Hire full -time professional planner.
Financial planning.
Economy in government.
Street repair.
Downtown improvement (two comments).
Waterfront.
Preserve old buildings (two comments).
Preserve green space.
Slow down growth.
Improve job opportunities.
Sidewalk and curb construction.
Public golf course.
Need truck and traffic by -pass route (around city).
':ore community events.
Slow down and control home building.
Help senior citizen with property maintenance.
Keep City quaint.
Better and free parking.
Take out parking meters.
CBD mall.
Stop extending City School facilities.
More industry.
Change School District boundaries.
Attract tourists and shoppers.
Improve CBD traffic.
Maintain natural beauty.
Control development.
Stop exploitation by large developers.
`feed by -pass for CBD.
Better zoning enforcement.
Police streets, (walking policemen).
Better paramedic service.
More industry for taxes.
Expand city limits for tax base.
Use joint powers agreements with adjacent communities for
lower .czosts.
Control speeding and better. police.
Consistent tax base and policy.
Historic emphasis.
Expand and maintain parks.
Tot lot recreation areas.
Limit growth /population.
Citizen voice in local government.
Improve CBD (three comments).
Prevent growth of low income housing, especially apartments.
Lower taxes and more recreation in Croixwood (two comments).
?e -route [Jisconsin traffic.
Enforce curfew.
Control juveniles.
Something for the elderly.
New business (two comments).
-12-
Master plan for expansion and controlled growth (two comments).
Neighborhood clean -up campaigns.
More use of City parks.
Increase cultural experiences.
More industry.
Better streets and sidewalks (two comments).
CBD parking and traffic (two comments).
Make better u8e of existing good things.
Kindle community spirit and pride.
CBD bridge traffic (two comments).
Sewer in Dutchtown.
Sanitary sewers.
Bridge.
Expand City limits.
More information on bus service (media).
Public swimming pool.
Modern play equipment (up- date). ,
Maintain historical qualities.
Limit building height.
Greatly improve CBD (adds to civic pride and excitement).
Community activities that draw people together.
Line up new streets with existing.
Solve CBD parking and pedestrian problems.
Lower Taxes.
Better management.
Better planning.
CBD congestion.
Improve snow plowing.
Good law enforcement.
Traffic.
Keep taxes at present level.
Get out of Metro govenment commissions.
De- consolodate School District 834.
Don't commit future generations to large public debt.
Let Barney Brown write Newsletters in Utility Bill.
Stabilize, hold down taxes.
Elect good officials.
11. At the city's current state of development, planning should include
provisions for upgrading and renovation of older areas as well as
standards and guidelines for development of remaining vacant land.
(check one) Yes 90 No 4.
12. Stillwater should be planned as a "village" in the traditional sense
of the word to maintain community identity and the "Quality of Life"
enjoyed and desired by the residents. (check one) Yes 72 ':o 6.
13. ,hat three things do you dislike most about Stillwater or the
surrounding area?
Strip development along Highway No. 212.
Haphazard growth of 1- family housing rather than Planned
Unit development.
"'Modernization" of too many old buildings.
Poor planning of Highway corridor.
Poor CBD traffic.
Dis- jointed planning.
-13-
Lack of commercial and industrial tax base.
Inadequate CBD parking.
No use of river by City.
Lily Lake conditions.
Congestion at Cosmopolitan Bank drive -in.
Dwindling sales promotions.
All the people have to come to Stillwater for recreation (such
as Lil y Lake) .
Too many commercial areas.
Citizens cannot enforce zoning ordinance.
CBD parking and traffic.
Slow repairs (washout on Olive between 2nd and 3rd).
Too rapid residential growth to the west.
Highway strip development.
CBD streetscape.
Wasted ravines.
Lack of industry.
CBD congestion
CBD parking (four comments).
CBD appearance.
CBD parking and traffic (five comments).
lax structure.
Poor animal control (five comments).
Taxes - especially new areas (six comments).
CBD traffic (twelve comments).
Lack of initiative by City Council.
Too few wheel chair ramps (streets, sidewalks, buildings).
loo provincial at times.
Control kids (damage).
Strip development (three comments).
Changing ordinances for special interests.
Lack of hotel facilities.
CBD more average price clothing.
No sidewalks in new areas (not just
River traffic and barge facilities.
Approach to CBD.
Barrels and bins by Oasis Oil.
Tearing down old buildings - should
Speed laws not enforced.
Too .many retail outlets (overbuilt)
Lack of "cluster planning" (wasted
Lack of local employment.
The crowds.
Lack of parking.
Poor CBD building appearance.
Ugly CBD old buildings.
CBD getter smaller.
Lack of Police on foot (CBD).
Croixwood).
be preserved.
- dooms CBD (by strip).
space) .
Police - too much time on dog control - not enough on crime.
o beach on river..
Lack of cooperation between CBD Council and Chamber of Commerce.
Lack of information - buses, boat rides, etc.
Poor south approach to CBD.
';eed motel.
Pocr sidewalks (two comments).
-14-
Sanitary sewer system.
City boundaries.
Poor streets and sidewalks.
:ore traffic lights.
Lily Lake (clean up).
Fast rate of growth.
Tourism.
Winter.street maintenance.
Lack of recreational facilities for family use.
Public transit.
Lack of master plan.
e No swimming pool.
Green - Lake McKusick.
Lack of close shopping - Croixw.00d.
NSP plant.
Summer traffic.
Better clothing store (Sears).
Need CBD parking ramp.
Juvenile delinquency and courts (two comments).
Too little for elderly.
Proposed construction by Reliance near Croixwood.
City Council not recognize will of people.
Waterfront poor condition.
Lack of interest in business growth.
Poor playgrounds.
Washington County Planning Commission - no real function.
Poor looking approaches to City (two comments).
Dangerous frontage roads on 212.
Poor parks (two comments).
Too far to shopping.
Quality of life poor excuse for higher taxes.
Noise.
Over commercialization.
Urban sprawl.
Croixwood.
"Strip" image (two comments).
Lack of Marina.
Traffic congestion Hwy. 95 and CBD (three comments).
Junk cars.
Refuse, eye sores (three comments).
Police Department (too many police).
Poor snow plowing.
Bun down areas (west side of North 2nd between Stillwater and St.
Croix Acres. Two bad Houses.
Fire Department.
Police Department.
Public Works Department.
Lack of good bus to University campus and other areas.
Orin Thompson blight.
Lowell Park disgrace /out of towners.
Tourist trap.
Traffic at bridge.
Minimum lot size too small on new homes.
Leniant zoning enforcement.
Sewer cost too high.
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Taxes.
Shopping.
Small town attitudes (too small).
Parking meters.
Bigger is not better.
Lack of school room space.
High taxes (two comments).
Newcomers not accepted (not just Croixwood!).
Old timers apathy.
Poor traffic control.
Catering to big shots (bank and Cub Foods).
Streets not named in orderly fashion.
Sewers (cost) in new addition.
Tax discrimination in Croixwood.
Lack of CBD parking.
Sharp gravel put in streets.
No choice of trash collector.
New buildings too modern.
Department store or K -Mart.
Croixwood treated as outsiders.
Hockey rink location.
Storm drain in Lily Lake and poor control.
Poor use of river shore.
Cost of County offices.
Tax structure.
Close to prison.
Growing lack of "sense of community ".
Downtown.
Poor snow removal.
Lack of softball fields (good ones).
Lack of strict law enforcement.
Poor attitude of CBD merchants.
Poor local mass media, and radio. (two comments).
Need new high school and junior high school (three comments).
Poor sidewalks.
Takes too long to plow streets.
Prejudice against Croixwood.
School Board and City Council don't work together.
Financial support of schools and county.
Loss of identity to metro commissions.
Lack of CBD parking.
Traffic across bridge.
Storm water into lakes and algae.
Poor location of ice rink (ruins I,ily Lake).
Poor police control at Lowell Park.
Boat traffic on St. Croix.
14. What three things do you like most about the City of Stillwater'
Historic heritage - qualitative nature. (eleven comments).
Unique architecture.
Topo (two comments).
Friendly people (eight comments).
Recreational program (two comments).
Old buildings.
Unique shops.
Fire and Police
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Feeling of community (two comments).
Close to citites (eight comments).
Clean air (two comments) .
CBD business.
Small town atmosphere (ten comments).
River (seven comments).
Beauty of setting (two comments).
Schools (seven comments).
Historic buildings.
Building renovation.
Parks and playgrounds (four comments).
River scenery in fail (two comments).
` Clean town (two comments) .
Good place to raise family.
Quality or life style.
Heritage of City.
Clean streets.
Police and Fire (two comments).
Scenic areas (three comments).
Police (but not large enough).
Beauty of City and the area (three comments).
Sights and things to do.
Does not encourage large growth.
Good City services except Post Office.
St. Croix Mall.
Athletic programs.
Opportunities (many for its size).'
CBD renovation.
Location near river.
Open space.
Good streets .and snow removal.
River location.
Good Police (two comments).
City dump.
People.
Good drinking water.
Quality of life.
Older homes and lawns.
Professional services.
Tourist attraction. (No good for anything else).
Quiet streets with lots of stop signs.
Condensed area to facilitate walking.
Size.
Appearance.
Restoration (two comments).
Concerts.
Bus service.
Concerned citizens.
Adult education program.
Community spirit (two comments).
City services and staff.
CBD restoration.
Good restaurants.
Nice miscellaneous shopping.
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Old, unique.
Country like atmosphere.
Many churches.
Environment.
Lovely neighborhoods.
Pride in l{istory.
Low crime rate.
River front.
Quiet, friendly town.
Topo (two comments).
Continuity and compactness of old town area.
Small town sense of place.
People (two comments).
Small town atmosphere (two comments).
CBD.
Sense of community.
Human scale - fits to walking.
Pride.
Friendliness (two comments)
Size.
Age - appearance.
Low crime rate.
Quiet.
History and tradition.
Well maintained parks.
Historical places and appearance.
Arena and park complex at Lily Lake.
Pleasant surroundings.
River.
Good quality of merchants.
Can be by yourself in small town.
Away from big city.
Close to rural and river.
Closeness of the community.
Combination of old and new.
Well preserved old river town.
Scenery.
Streets in good shape.
Its size.
Quality of City services.
River front.
Old neighborhoods.
Good City Council.
Parks.
Attractive residential areas.
Lily Lake.
St. Croix River (two comments).
Historical values (five comments)
Close to cities but not suburb (it
Physical attractiveness.
Good schools (six comments).
Good recreational department (two
Friendly people (two comments).
City services.
Trash collection.
Renovated old buildings, includin
is a community).
comments).
liomes (three comments) .
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Generally neat and clean.
Nice stores (but need lower priced ones).
Responsive City government.
Quiet residential areas (two comments).
Safety and security (four comments).
Quaintness.
Beauty of area (three comments).
Size (two comments).
Population density.
Small town life style (three comments).
Clean.
-Good City departments.
' Increasing efforts to improve appearance.
Community spirit.
Recreation areas.
People ( two comments).
High moral values.
Historic small river town.
Community activities.
Feeling of community (two comments).
New shops and restaurants.
St. Croix Valley location (two comments).
Street Maintenance.
Communitv activities.
"Village" atmosphere.
Churches.
_ Trash pick up..
Good water (before:).
Small size (three comments).
Religious cooperation.
Quaintness.
Cute shops and restaurants.
Good medical services.
Convenient shopping.
Varied shopping.
Proximity to twin cities.
Oldness (two comments).
Valley parks.
Civic pride.
Location.
15. Should the City place controls on the size and location of major new
housing developments? (check one) Yes 89 No 4.
is it desirable to limit the size and rate of population growth?
Yes 78 No 11.
Comments:
Due to school room spare limits.
Keep small community outlook on life.
Keep in line with ability to provide City services.
Getting too big.
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Keep services in line with growth needs - plan ahead.
Pay for new area streets (maintenance).
Maintain quality of housing.
It is selfish to limit (two comments).
Fast growth leads to improper, quick decisions, overcrowding.
Better planning.
Limits should aim at quality not just exclusion.
Get act together - schools and building homes - keep up.
Stop expanding City limits.
Stop vacating streets.
Too much building will destroy small town atmosphere, and
become just another suburb.
' Doubt if population can be controlled.
School over - crowding.
But remember this is still a free Country.
Okay if services keep pace with new orderly development (two comments).
Impossible.
Over - crowded schools.
Uncontrolled development will destroy quality of life.
Sprawl is blight.
Keep small (quality).
Quality better than quantity.
If they will affect services and facilities.
Until we have more schools.
Don't run us right up to St. Paul.
Master plan.
Discourage scattered housing - encourage moderate size housing
developments - 200 to 300 homes - Lots 80'x 120'.
Hold down apartments and condominiums.
Annex land.
Avoid big city problems and costs (two comments).
How can you limit population growth?
Master plan for orderly growth (two comments).
Make builders pay for schools.
Small town, not suburbia.
Maintain quality of education.
Get industry.
In relation to new business growth.
Limit but not to extent of "small village ".
16. Is it desirable for the city to have major new commercial and industrial
development areas? Yes 59 No 30.
Is it desirable for the city to control the number and location of
fast -food and other "drive -in" business establishments? Yes 73 No 16.
17. Should the city establisli and enforce standards for the appearance
of commercial and industrial developments? Yes 91 No 3.
18. Additional Comments, Suggestions, Opinions:
No Georgian fronts on Butler buildings.
:weed integrated park, trail, open space system using ravines
to link river, old prison and CBD with McKusick Lake and the
Croixwood area.
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Builders provide green corridors through projects.
Traffic light at Hwy 95 and Nelson Street.
Great place to live.
Don't become another Cottage Grove.
Ideal place to live.
Need better zoning control and enforcement.
Control historical old city (new development outside).
Proud to be a resident.
Poor CBD parking and weather protection.
Need historical architecture controls to keep harmony.
Poor snow plowing.
Use City funds downtown to help improve.
Improve north end of CBD.
Control signs, lights, trash.
Enforce no- parking on snow routes (Pine Street between South 3rd
and Handcock.
Why Croixwood not on map?
Blocked sidewalk (Mulberry and North 3rd Street, N.W. corner
also unsightly area.
Leave Lily Lake alone.
Get rid of Metro Council.
Improve water.
Poor "strip" image for town.
Show parks and recreational areas on map.
Extend bus service in town to mall.
High taxes in Croixwood compared to same value homes nearer CBD.
Accept new people.
Don't be unfriendly, disorganized and unplanned.
Good street maintenance.
Better management and planning.
Animal control should not be responsibility of Police Department.
Growth okay if services keep pace.
Less Government.
Avoid rapid change and loss of qualities we have.
Extend City limits for business and industry.
'seed master plan - for change and renovation.
Keep business away from Lily Lake.
Need City administrator (professional).
Want no service station south end of town.
~lust have good reasonable regulations.
Put Croixwood on map:
Stop discouraging new business from comming into CBD.
Encourage industry.
Foot patrol in CBD.
Good water.
Fine ambulance service, good medical.
Prompt snow removal.
Curb noise.
Curb snowmobiles.
Curb bicycles.
Encourage more involvement in local government.
Information for crime prevention, burglary.
Hisotrical restoration.
Mall area planning bad.
Get rid of fast food ,joints.
Cluster good industry for local (2m{)luyment.
Era=
Don't drain CBD by allowing strip development.
Sewer bill too high.
CBD parking.
Keep green space.
I want to be at planning sessions.
Restore Main and Willard Street stZai.rs.
Mini grocery on south Bill.
Make owners clean up yards.
City attitudes resulted in mall and strip to detriment of CBD.
SUMMARY CO`IMENTS AND ANALYSIS
General
The planning survey will be most helpful in the City planning
process for a variety of reasons:
a) Geographic distribution of returns was good.
b) Question answers (number, type, results) indicate that
this is a valid sample of general public opinion; indications
are that a larger sample would not likely show signi-
ficantly different results.
c) Nearly all questionnaires were filled out in full
with obvious attempts to fully express well considered
opinions and suggestions for planning needs.
d) In addition to general opinions and suggestions, many
very specific and helpful ideas were presented.
e) In some areas for planning consideration, questions
answers were 90% or more in agreement; this is quite
significant and provides the Planning Commission and City
Council with a clear direction to follow in planning to
meet certain environmental goals expressed as a need and
desire by the residents.
2. With but one notable exception, no significant differences
are noted in responses from various ..areas of the Cite, citizens -
at- large, the RTR group, or appointed or elected officials;
this means that, in general, an apparent community consensus
exists as to proper planning for the future maintenance and
development of the Stillwater environment. (An exception to
the general consensus was noted from residents of Croixwood
and to a lesser degree from residents near Lily and McKusick
Lakes as noted hereinafter.
3. Unlike similar surveys conducted in some other communities,
not one single questionnaire indicated an overly emotional,
erratic, or obsessive dis- satisfaction with the environment,
public officials, government in general, a neighbor, or other
serious "bone -of- contention ". This should indicate a generally
stable and mature population. In any event, it seems obvious
that most residents of Stillwater are:
a) Generally satisfied with living; in the Community.
b) Satisfied with the civic environment but do see various
I
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specific areas for needed and desired improvement.
c) Very proud of their Community, enjoy its historical
heritage, and have a good "sense -of- community" in personal
and group relationships.
4. Results were quite different from those noted from similar
surveys conducted in various other communities which indicated:
a) Larger degrees of dis- satisfaction with the environment
and civic conditions in general.
b) Greater individual "hostility" towards local officials,
government in general, neighbors, and the like.
C) Greater "fear" for change and the future.
d) Less civic pride, "sense -of- community ", and feelings of .
good personal relationships with other people in the
Community.
e) Little or no interest in the historical aspects of the town.
f) Less knowledge of community affairs, functioning, and
even geographic areas.
g) Greater interest in very small and specific "irritations"
often having little or nothing to do with community
planning or governmental responsibilities.
3. Survev results indicate a very positive atmosphere f.or City
Planning in Stillwater even to the extent of a strong desire
for planning to help assure the continuation and enhancement of
environmental conditions which are now enjoyed and appreciated
by residents.
Specific
1. Numerous specific suggestions and areas of concern are as
listed on the summary sheets; all are included since very_ fear
are not applicable to the planning process.
2. Nearly all of the specific comments and suggestions will be
helpful in planning for the future of Stillwater.
3. It is only in Croixwood that residents differ significantly
in opinions as compared to other areas in Stillwater; primary
differences are as follows:
a) A large percentage consider recreation facilities in-
adequate in the immediate vicinity of their homes;
b) Many believe that property taxes are high in their area
as compared to other parts of Stillwater;
c) While most people in Stillwater feel like they are
welcome and part of the Community, many residents of
Croixwood believe they are considered as "outsiders ",
"unwelcome ".
4. Approximately 70% of the people consider the recreation program
and facilities as being adequate; most persons do, however,
have some suggestions for specific improvements. It is only
in the Croixwood area and to some extent near Lily Lake that
residents believe recreational fracilLttes to be inadequate in
their immediat^_ vicinity. In general, the popul.ition rates
-23-
the recreation program and facilities from very good to
excellent and this praise includes the School District
(education and recreation programs).
Specific suggestions of note include use of the ravines for
trails, a new swimming pool, additional facilities of various
types such as tennis courts, and ball fields, added facilities
in the North Hill Area, Rivpr frontage, and others.
5. A surprise result of the survey was that only 33 stated that
taxes were too high as compared to 57 stating that taxes were
"about right ". Most of those stating that taxes are too high
fell into one of the following categories:
a) Resident of Croixwood;
b) Elderly;
c) Considered taxes too high in relation
to actual public services received; or
d) Had recently purchased a home in Stillwater
regardless of location.
apparently there is a belief by some that new homes and recently
sold, homes are taxed higher than others regardless of market
value.
While a significant number of people do not believe that
taxes are too high, they are concerned about efficiency
in government, proper financial planning, wise public spending,
fearful of future tax increases.
5. Major problems needed special attention and study include
the following:
a) Traffic (in Central Business District).
b) Downtown improvement.
c) Open green space preservation.
d) Taxes, tax base, cost of government.
e) Land Use and poor yard and building maintenance.
f) Housing for elderly, parks, water bodies and shoreline.
g) Historic preservation.
Downtown traffic tops the list of Community problems residents
want solved by a wide margin over others listed above.
Other significant areas of concern are of a general environ-
mental nature but very practical such as better building and
yard maintenance and encouragement of continued Downtown
improvements.
7-.-- Only about half the residents stated they had specific or
general areas of concern; this reflects the general satisfaction
with the Community environment noted by the survey results.
Even though some stated they had no specific suggestions, they-,
-24-
none - the -less went on to list some; this is .a positive sign of
civic spirit and desire to improve existing conditions which
would enhance the general environment.
8. :Many persons noted existing good examples of environmental
conditions to be expanded upon or utilized elsewhere in the
Community.
In general, this response stated "keep up the good work" with
some hint that many people consider the past five years as
being a period of good improvement and progress in Stillwater.
9. The great majority of residents consider their home and work
environment as good; only seven (7) persons stated it was
"poor ". a high number of "fair" ratings, however, reflects
the general desire for additional improvements, especially in
the area of building and yard maintenance.
10. In addition to the question on taxc!s, it was a surprise to .
note that only 45 persons believe that a new bridge across the
St. Croix is "urgently" needed as compared to 54 stating it was
only "desirable" or "not needed "; 27 responded by saving it
was not needed. Some expressed concern that the existing bridge
not be torn down in any event; a need for pedestrian access
to the Wisconsin side was also expressed. There is some concern
that a new bridge might adversely affect the historic and,
aesthetic qualities of the Downtown or Community.
11. Over 90% of the people believe that further improvements are
needed in the Downtown area (Central Business District) with
traffic congestion leading the list of major concerns followed
by an expressed need for better parking. Unlike similar
surveys in many other communities, only a few expressed dis-
pleasure at current merchandise selection, services provided,
and prices. Many general and specific suggestions are included
which add up, in the main, to the following desires:
a) Improve traffic conditions;
b) Provide more and convenient parking;
c) Improve pedestrian conveniences and amenities; and
d) Continue the restoration of historic buildings and
maintenance of a "quaint" atmosphere.
There is some concern that Downtown may become too "tourist"
oriented rather than being primarily a local service and shopping
center. The survey is quite significant in that most residents
are interested in the Downtown and pleased with recent improve-
ments. Survey results indicate that additional shopping could
be expected in the Downtown if traffic congestion were allevi-
ated; improved parking would also be an aid although part of
the existing parking "problem" is related to traffic and ease
of movement to and from parking areas. The traffic situation
is so bad in the Downtown that only three (3) comments were
noted in the survey about traffic problems elsewhere in the
Community.
-25-
It seems quite obvious that Downtown business volume could be
greatly improved by relief from traffic congestion and the
provision of adequate parking (location and amounts) to
accomodate existing and increased future customer demand.
.Survey results indicate that a "mall" or similar expensive and
drastic improvement eFfort is nut ncc(ied to signLticantly
improve business volume prospects. River frontage improvement
is desired also but this may or may not have a direct bearing
upon prospects for business volume.
12. Over,90% of the.people consider Stillwater's historical
features and qualities to be highly important; this is not the
case in some other communities where residents see little value
in historical aspects of the Community even to the extent of
being -in opposition to the use of historical features in the
.Community planning process.
This is most significant for planning in Stillwater since the
survey results indicate a strong desire for historical pres-
ervation. in the residential areas as well as the Downtown.
Strong support seems evident for historical zoning districts,
various types of preservation programs, architectural controls.
It is noted that the interest in historical aspects of planning
is quite general through the population and not limited to only:
the'River Town Restoration (RTR) or other special interest
groups. It is noted, however, that the historical qualities
are desired.for enjoyment of residents - not for the satis-
faction and attraction of tourists.
13. Residents were asked to list the three most important things
that should be done to improve the environment. While a large
number of suggestions were received and essentially add up to
"keep up the good work on current improvement efforts ", some
ideas for proper planning can be summarized:
a) There would not be much public support for another
large housing development expecially if rapid
development would occur.
b) There is little support for significant expansion of
the City limits except for tax Lacome purposes.
c) Quality, not quantity is desired.
d) Improvements which involve - community /pecple involvement
and relationships are popular.
e) Historical "quaintness" is desired.
f)..Urban "sprawl" and rapid growth is not desired.
g) Good planning and strong zoning and other code
enforcement would receive public support if fair and
reasonable; for example, strong building code enforcement
in historic rehabilitation would not be widely supported.
h) "Clean -up, Fix -up" campaigns which included assistance
to elderly persons would have strong public support.
Information programs (such as maps showing bus routes,
existing parks and playgrounds and services, etc.) would
be popular.
-26-
14. Extremely strong support is evident for plans and program`s to
improve the appearance of older housing and commercial-'areas;
similar surveys in other communities do not often indicate such
support due to fear of increased taxes, government programs
in general, general lack of concern, or other "reasons. -
15. It is quite clear that most people consider Stillwater as a
separate community or a "village" and not a suburb of the
central citites. The existing environment and "quality of
life" is greatly enjoyed and desired for the future.
16. When asked what people "dislike" about Stillwater, a wide
variety of "physical" things are noted in specifics; veryl-
little dis- satisfaction with the over -all, general enw- ironment
is noted. When asked what they "like" the most, answers tend
to relate to people and community activities.
Dislikes include, among other things, the - following:
a) Downtown traffic and parking conditions.
b) Urban clutter, evesores, sprawl, and mixed lard use.
c) Pollution of various types.
d) Rapid growth and over - commercialization. -
e) Lack of certain specific recreational need -s.
f) Concern with planning and law /code enforcement.".
g) New buildings not in keeping with historical naturd
of City.
h) Concern for future of "small town" people related
activities and communication.
The Residents of Stillwater like many things about the Community
and the general area. In general it can be said that the -• like
the friendly people, historic quaintness, small town atmosphere,
city services, River valley natural setting, and quality of
life the most; in short, they are saying it is a "good place
to raise a family ".
The survey results are significant in that similar surveys in .
many other communities do not indicate the "feelings of commun-
ity" or good personal relationships evolving_ into rather intense
civic pride that is evident in Stillwater. In many:=dther
communities, the physical aspects of the community.along with
financial considerations are often considered more important
in terms of proper planning.
17. Host people believe that the size and location of large new
housing developments should be carefully controlled;'rate of
growth is considered as important as the size (concern with cost
and ability to provide public services and affect upon "small
town atmosphere "). Population size and rate of growth should
be controlled although some answers indicated a'possible confusion
with "birth control" measures.
-z7-
18. Opinion differs as to the need for n1ajor new business and
industry; most of those expressing, &. need for commercial growth
relate this to the need for a better tax base. Most of those
opposed to commercial growth relate it to possible detrimental
affects upon the historical quaintness and small town- atmosphere.
A good majority of the residents believe that there should
be Controls on the number and locations of fast -food or
other "drive -in" business; much concern is noted about "strip"
development leading into.the Community. Some of those opposed
to such controls state that they iiuy be needed later, but not yet.
19. Only three (3) people stated that there should not be enforced
standards for the appearance of commercial and industrial
developments; this is quite significant in that such
concern about the appearance of non - residential areas is not
so stzong in many other communities.
20. A wide variety .aknd nurgber of suggestions are included for
planning in Stillwater; these will be quite helpful in terms
of both general and specific areas of environmental policy
and decision making. Some special notes are as follows:
a) Unlike some rapidly growing communities, it will be
possible to emphasize planning for retention of open
green space as well as the development of active,
ox.gan,ized recreation areas and facilities.
b) Planning can be emphasized in the older areas as well
_as; in the .new., fringe growth areas.
c) ?1an'y existing conditions can be used as a guide for
proper planning rather than poor examples for planning
ed . dhange .
d) Planning can be "people oriented" rather than
concentrated upon purely physical aspects of the
environment.
e.) Specific planning recommendations can be made and
related to sound fiscal-planning.
f) In short, a very favorable atmosphere for proper planning
exists and is apparently desired by a majority of
the residents.
Z1. Io anon- resident, the survey results clearly indicate that
Stillwater is, in fact, a "good place to raise a family" but
that.existing residents do see room for gradual improvement
utilizing the best from the past as a guide to the future.
APPENDIX- "B"
LIST OF GRAPHICS SEPARATE. FROM BUT MADE PART`OFDTHIS,
COMPREHENSIVE MUNICIPAL PLAN REPORT
1. City Base Map (updated, 1979)
2. Existing Land -Use Map
3. Historie Site'and Structures. Map
4. Soils Mapping
5. Housing Condition Survey'.�.Map
6. Topography
7. Comprehensive Sewer Plan
8. Existing Sanitary Sewer
9. Existing Storm Sewer
10. Existing Zoning
11. Existing Water Lines
12. Hwy. 212/36 Corridor Plan (Joint Poweis.Area): ";'`''
a) Vase Map (Small and large- scale)
b) Existing Zoning
c) Planning for Traffic 'Circulation
d) Suggested Zoning .Changes
e) Corporate Limits ( "Study Area ")
f) Development Plan (Large`ScaTe)
13. Central Business District
a) Existing Land Use (Large and small scale)
b) Existing Parking (Small scale)
c) Long -Range Improvement Coneept Plan (Large & small S.,)
d) Flood Dike Design Concept Study
14. Planning Issues {Improvement Needs and Street Classifica-
tions by Function
15. Free Standing Growth Center Regional Considerations
16. General City Plan and Neighborhoods