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Note: Preliminary and subject to change Prepared by: Carl Dale, A.I.P.
lollazg public hearings and review Planning Consultant U a
For: Stillwater Housing A
Redevelopment Authority 18 `
December 1971
DOWNTOWN STILLWATER
A CONCEPT PLAN
Prepared by:
Carl R. Dale, AIP
Design Planning Associates, Inc.
Minneapolis, Minnesota
Prepared for:
Housing and Redevelopment Authority
City of Stillwater, Minnesota
January, 1972
CREDITS
Housing and Redevelopment Authority
Fred Bohlken, Chairman
Donald Carlson
Dean Charlsen
Richard Jeans
Donald Nolde
Planning Commission
Duane Arndt
Richard Balfanz
John Condon
Melvin M. Friedrich
Harold Hohlt
Dr. Fred Kalinoff
Arthur F. Raduenz, Jr.
Jack Shelton, Director of Public Works
Jeffery Zoller
City Officials
William Powell, Mayor
Richard Balfanz, Councilman
James F. Lammers, Councilman
Roger Peterson, Councilman
George Wohlers, Jr., Councilman
Raymond E. Marshall, City Coordinator
Harold Kimmel, Attorney
Wallace Abrahamson, Director of Public Safety
Planning Consultant
Carl Dale, A.I.P.
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DOWNTOWN STILLWATER
TABLE OF CONTENTS
Page Number
Chapter 1. Introduction 1
Chapter 2. Structural and Environmental
Conditions
A. Structures 2
B. Environment 5
Chapter 3. Parking and Circulation
A. Available Parking 8
B. Circulation 9
Chapter 4. General Economic Factors
A. Metro Influence 11
B. Recreational Aspects 12
C. Existing Industries/Potential 12
Chapter 5. Existing Land Use
A.
Residential
13
B.
Commercial
13
C.
Industrial
14
D.
Public
15
Chapter
6. Downtown Concept Plan
16
Chapter 7. Plan Implementation 22
List of Graphics
Existing Parking 8a
Existing Land Use 14a
Concept Plan 16a
Primary Improvement Areas 28a
CHAPTER 1. INTRODUCTION
Downtown Stillwater was established and grew as the City's
retail center during the latter half of the 19th Century.
Its basic function and circulation system survived these
many years despite varied technological and societial
changes. However, as growth and change over the years in
Downtown occurred, it became apparent that the necessary
guidelines and the development of a plan was essential to
the evolution of a pleasing and functional Downtown.
Towards this end, the first comprehensive planning effort
was directed in the early 1960's. As a result the follow-
ing reports/studies were executed:
Stillwater Interium Plan Report
Comprehensive Guide Plan for the Stillwater
Planning Area
Downtown Parking Study
Downtown Circulation Plan
In the development of the present Downtown Concept Plan,
these earlier studies were examined and carefully evaluated
with the idea of updating and expanding on those earlier
recommendations still felt to be valid. As an example,
the Downtown Traffic Circulation scheme chosen for the Plan,
while different from the earlier recommended scheme, will
provide for smoother through traffic flow, less excessive
uphill grades, and at a considerably lower cost than the
earlier plan.
It is hoped that the principles, goals, and objectives
advanced in this report will be carefully considered. The
building of a better Downtown, a Downtown exciting a0d
enjoyable to shop and work in, will require more than the
cooperation and efforts of all concerned, as essential as
this may be, it will also require a sensitive understanding
for and development of the Concept Plan as outlined in this
report. As Henry David Thoreau said over 100 years ago,
"If you have built castles in the air your work need not be
lost, that is where they should be. Now, put the foundations
under them."
CHAPTER 2. STRUCTURAL AND ENVIRONMENTAL CONDITIONS
A. Structures
A field survey was undertaken in September of 1971 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 main-
tenance. Examples of slight defects are:
* 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
Needs more repair than regular maintenance. One or
more defects of an intermediate nature. Examples
of intermediate defects are:
* 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
-2-
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 floorboards) over
a large area of the foundation, outside walls,
roof or chimney
* Substantial sagging
* Extensive damage by
of floors, walls or roof
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 addit-
ional 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 dilapi-
dated. 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.
-3-
The following table illustrates, by primary use, the
number and percentage of buildings in Downtown Stillwater
that were surveyed:
Table I. Structural Condition of Buildings By Primary
Use in Downtown Stillwater, September, 1971
Total
Primary Use Buildings Sound Deteriorating Dilapidated
Commercial 91 69 76 16 17 7 7
Industrial 8 5 63 3 37 0 0
Public/
Semi-public 9 8 89 1 11 0 0
Residential 26 10 38 16 62 0 0
Field Survey,
September, 1971
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 mat-
erials 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.
Stillwater's old Post Office could fall victum to such a
fate if a practical use is not found for it.
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 inappropriate land
use, insufficient pride in the building's appearance,
difficulty in finding a user, or generally poor economic
-4-
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.
B. Environment
The following environmental
important in the evaluation
environmental situation:
factors were considered as
of Downtown Stillwater's
1. Overall visual impression of buildings and
property, i.e. degree of cleanliness or litter,
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 comiriuni ty aid 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 contrast-
ing townscape of Stillwater itself makes for a very
unique setting. Within this appealirr natural frame-
work is set a town that has a proud and di-stinguishing
past as evidenced by its place in Minnesota history and
its many examples of fine 19th Century architecture.
In contrast, there are noticable "hlight- gaps" in
Downtown Stillwater's environmenta and these
were given special attention i'n th ",; ctl, y.
Unfortunately, Downtown Stillwater's "vehicular
entrances" suffer most from environmental deficiencies.
These deficiencies range from geBcral Fitter and unkept
-5-
surroundings to deteriorating buildings. When approach-
ing Downtown via Main Street from the south, the
motorist sees an abandoned concession stand on his left
and a deteriorating poorly maintained elevator on his
right. From the north approach via Main Street, the
motorist is confronted with a vacated dilapidated garage
on the right while to the left industrial and railroading
activities cut-off any scenic river views. The Wisconsin
bridge approach for the Stillwater -bound motorist also
possesses several visual deficiencies, i.e. railroad
tracks, parking lots (no landscaping), and the backs of
several retail business establishments. However, the
improvement of many of the backsides of these business
establishments coupled with the restoration of the
Lumberman's Exchange Building has improved this approach.
Other enviromental deficiencies in need of repair or
modification are as follows:
1. The practice of "storing" junk cars along Nelson
Street. This situation, if allowed to continue,
will force down property values and restrain
nearby property owners from making much needed
building repairs.
2. The sorry condition of the automobile garage
fronting Chestnut Street needs attention with
this building's structural soundness questionable.
3. The vacant former post office building on Second
and Myrtle Streets is a beautiful structure
architecturally but requires an active user to
prevent this building from deteriorating.
4. Another vacant building in need of a tenant is
the old First Presbyterian Church at Third and
Myrtle. Both this building and the auto supply
dealer's building next door appear to be
deteriorating with improvements and/or new
uses necessary.
5. As a building of significant historical value, the
Old Stillwater Opera House could be restored and
put into active use. An initial first step is to
have this building placed on the National Register
for historical buildings. This action would be
necessary if the Old Opera House is to be
eligible for a HUD Historical Preservation Grant
to assist in the cost of the building's restor-
ation.
6. The Salvation Army Thrift Store on Third Street
along with two adjacent duplexes and two ot-her
adjacent residential structures are in a deter-
iorating condition with the need to replace
these buildings sometime in the near future.
7. 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 occurance 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.
8. Presently Stillwater's air pollution level does
not appear to warrant great concern, however
one existing industrial use on Stillwater's
Downtown fringe is creating a potential smoke
and stench problem that could adversely affect
Downtown's environmental quality. Development
of an adequate filtering system to control the
quantity and odor of the smoke from this plant
is advised if it is to remain a "good neighbor"
with Downtown.
-7-
CHAPTER 3. PARKING AND CIRCULATION
A. Available Parking
The following table enumerates available parking within
the project area:
Parking in Downtown Stillwater - September, 1971
Category
Spaces
On -street parking, metered:
1 hour limit
73
2 hour limit
135
total
On -street parking, unmetered:
105
total on -street parking
3M
Off-street parking, metered lots:
2 hour limit 66
4 hour limit 106
10 hour limit- 47
total
Off-street parking, private lots 431
total off-street parking 650
total on-street/off-street parking 963
Source: Field Survey
September, 1971
The above table indicates that a large percentage (45%)
of total parking spaces in Downtown are under private
ownership in off-street parking lots. When comparing
on -street to off-street parking capacity, it is found
that over two-thirds of Downtown parking is off-street
with less than one-third in on -street parking. Sign-
ificantly only a small percentage of metered parking
spaces (5% of total available spaces in Downtown) are
metered for all -day parking (10 hour limit). However,
a number of unmetered on -street parking spaces do
exist (105 spaces or 11%) for all day parkers who don't
have access to private parking. A considerable amount
of all -day unmetered parking also exists along the
St. Croix in a large public parking lot with 40 or more
spaces.
In
B. Circulation
In general, vehilicular circulation in Downtown Stillwater
is via two-wa 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 vehilicular traffic from or to
the bridge creates a visibility 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'sdes igned capabilities. Consequently,
Downtown Stillwater, 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 Still-
water's own circulation system.
Presently vehilicular circulation on Downtown streets is
r 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 Down-
town streets is by "stop" or "yield" signs and some
"one way" signing on Union Street. The present system
of vehilicular 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. For the current year (1971) Downtown
Stillwater averages approximately 10 accidents/month
with the Main Street - Chestnut and Third Street -
Chestnut intersections the two most hazardous intersections
in terms of number of accidents. The Third Street -
ME
Myrtle intersection also contributes rather heavily
to the accident toll with a rate of nearly one accident
a month for 1971.
The most recent traffic counts on Highways 95, 96,
and 212 were taken by the Minnesota Highway Department
in 1970. These counts show that Downtown Stillwater's
"south approach" (via U.S. 212 and S.T.H. 95) handles
approximately 8,000 vehicles/day while the "north
approach" (S.T.H. 95) receives 2,100 vehicles/day. On
an average day therefore, the "south approach" handles
nearly four times the traffic volume than does the
"north approach."
-10-
CHAPTER 4. GENERAL ECONOMIC FACTORS
A. Metro Influence
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.
With Washington County expecting to gain an average of
8,000 persons per year between now and 1985, according
to Metro Council population estimates, it can be
assumed that the Stillwater area will share in this
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 depart-
ment stores and suburban shopping centers found in the
metro area. Inticing local residents, and metro area
residents as well, to shop in Downtown Stillwater will
require Stillwater merchants and planners to create a
distinctively unique shopping environment. Already
assisted by a natural setting unequaled in the metro
area, the challenge is to more fully utilize existing
natural features/architectural creations while recreating
a more exciting interesting Downtown.
- 11 -
B. 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 week -end motorists give the Minnesota -
Wisconsin interstate bridge a thorough work-out at
such times. The growing interest in skiing and snow-
mobiling has extended the season recreational drivers
are on the roads in and around Stillwater to include
winter as well. What exact impact the inclusion of the
St. Croix River into 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, entertainment and shopping facilities
for these Stillwater area visitors will be a challenging
assignment for Downtown Stillwater businessmen.
C. 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.
-12-
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II
CHAPTER 5. EXISTING LAND USE
A. Residential
Residential use in the project 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 undersireable 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.
B. Commercial
The project area's most intensive commercial use takes
place in a six 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.
* Wholesale - includes the wholesale selling of many
of the same items as sold by retail establish-
ments. This land use activity should be located
out of Downtown's retail core and again, depend-
ing on the nature, size and scope of the activity,
requires good loading access, conveniencr� to
transportation modes (highway, rail, etc.) and
should be located on the fringe of Downtown or
preferably in proximity to industrial uses.
-13-
* 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
compatiable retail commercial land uses although
an exception to this rule would be gasoline
service stations which require more space and
more vehilicular 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 compatible uses. Service commer-
cial land uses such as repair shops and dry
cleaners also require convenient customer
vehilicular 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,
resturants, 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.
C. 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;
-14-
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.
D_ 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.
-15-
CHAPTER 6. 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 renovation have been in this
direction. The current architectural "mood" in many new
retail developments is slanted toward the rustic or quaint
approach and Stillwater 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 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. The creation of a pair of one-way streets (south -
bound only on Main Street and north -bound only on
Water Street) through Downtown's retail core. This
will ease auto circulation within Downtown while
speeding up through traffic. Bridge -bound traffic
(entering Downtown from the south) will by-pass
Downtown via Water Street thereby freeing Main
Street for shopper/visitor use. Some through
traffic from the north will be routed through
Downtown, however this will be considerably less
than traffic volumes from the opposite directions.
(Four times the traffic volume occurs on Main
Street south of Chestnut Street than it does north
accordin to Minnesota Highway Department surveys
in 1970.?
2. The closing of streets that are unnecessary, 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
-16-
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TOWN�s���
DOWNTOWN STILLWATER�
LONG RANGE IMPROVEMENT
CONCEPT PLAN
Note: Preliminary and subject to change Prepared by: Carl Dale, A.I.P.
following public hearings and review Planning Consultant
For: Stillwater Housing &
Redevelopment Authority
December 1971
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and Water Street (hazardous and unnecessary with
the development of the one-way system). 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 collusion 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 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 understandable
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, shops, and entertainment are located,
provides visitors with an incentive to stop, shop
and return in the future. While the revised street
system 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.
-17-
It is proposed that an architectural theme be
adopted and enforced to capture and maintain 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
developments.
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
promote added private investments with a minimal
amount of public direction and financial part-
icipation.
6. Some basic plan proposals are as follows:
a) Installation of a permanent flood protection
dike coordinated with planned street improve-
ments, waterfront park upgrading, and elimin-
ation 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) Development of suitable housing for the
elderly. In addition, several oppoutunities
exist for development of diversified multiple
housing for both higher and lower income
groups.
c) Installation of a clearly marked pedestrian
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,
MID
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" or "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 fuli-scale malls, especially in
case of smaller 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 utilized; 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 improved 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
indicating turn -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
am
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.
7. Further development of the Downtown should recognize
the various functions (retail, financial, general
office, housing, entertainment, 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 locat-
ions and to make room for expansion of more
appropriate and intense activities.
8. The plan calls for a series of relatively small 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•environ-
ment which will be in keeping with the area's
superior natural attractions. A high quality
environment (comparable to Sansalito 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 investments.
The construction of buildings lacking 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 install-
ations 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
-go-
economically if several store owners collaborate
on such a project; ideally, some construction
activity should be occuring almost constantly
within Downtown over the next 5 year period.
11. Preservation of all buildings that are structurally
sound and that can be utilized in some manner. The
proposed Plan calls for the demolition of only one
building (an old lumber storage shed) during the
initial phase. It is suggested that several other
buildings be replaced with more utilitarian and
sounder structures in the near future, however
the success of the proposed Plan does not hinge
on their immediate replacement.
-21-
CHAPTER 7. PLAN IMPLEMENTATION
A 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 economically feasible. Further,
there must be the desire and leadership to take the
steps necessary to attain the objectives
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 environmental
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 corwipa+ible
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 main-
tenance of Downtown Stillwater. It is suggested that
primary objectives can be attained within a pnr:ol of about
five years provided the necessary steps are teen promptly
and energetically.
Some of the steps to be taken are as
1. Plan Review
The Plan should be carefully reviewed by various
participating and affected par~ p; _ +o any
3.
formal and official action to adopt +.,, 1an
A period of about thirty (30) days should be allowed
for review of the plan by the y ?loin:, ; "nd others_
Housing Authority
City Council
County (Washington County Planning Commission
and County Highway Department
-22-
State Highway Department
Boundary Area Commission
Planning Commission
Chamber of Commerce
Property Owners and Tenants
Metro Council/Metro Sewer Board
Civic Groups
Historical Society
Police and Fire Departments
HUD Regional Office
2. Public Hearing
As prescribed by State -Urban Renewal Law, 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 desir-
able following results of the public hearing. The
final plan should then be adopted by the Housing
and Redevelopment Authority, Planning Commission,
and City Council. The entire area within the
boundaries agreed upon should be designated by the
City Council as an official urban renewal project
area to help serve as the legal foundation for
renewal 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 considerable reliance be placed upon private
initiative and resources. It may be possible,
however, to utilize Federal financial aid for
certain aspects of the project including public
-23-
5
V.
housing for the aged, flood controls, waterfront
improvements, pedestrian amenities, and others.
Certain State aids may also be available.
There are various local financing methods available
for consideration:
a) Tax Anticipation Bonding (payment of bonds
from increased project tax return resulting
from new development)
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
Select Initial Projects and Set Priorities and Time-
tables
Various projects have been selected as possible
to start during 1972 although it will not be
`easi bl a nor desirable to attempt them all during
the next twelve months. The projects are:
a) Public Housing for the Elderly
b) Acquire or otherwise promo Le new development
of junk yard and the hillside area south of
Nel son
c) Rehabilitation of old Opera House
d) Acquire substandard homes along south side
of Myrtle Street west of Third Street;
demolish homes and make sites available for
new apartment buildings (private;.
e) Select one or two retail blacks r;F; t.h shall
remain for testing of rehabiaitation efforts
f) Purchase underused land east of Third Street
and north of Myrtle Street to make available
for new development.
Zoning
The total renewal project area shoe.,' 'De ^ ',:;,sated
as a special zoning d R stri
e
use permit for all develoor n 14— z ., r' , nniantnwn Area.
A special use permit should =�
improvements exceeding $500.00 in value fu.' the
following reasons:
a) Assure compliance with ren,rewal -3xn
b) Enforce architectural "theme" re-+;irements
-24-
c) Prevent undesired developments on land
scheduled for acquisition for another
purpose
d) Provide for review of developments by the
public and the renewal area land owners and
tenants.
Further Planning
Certain planning studies must be conducted in
greater detail if the renewal effort is to proceed
in an efficient and coordinated manner. Special
studies are needed in the following areas:
a) Flood control
b) Public housing (site selection, unit need,
architecture, etc.)
c) Individual project details
d) Waterfront treatment
e) Road system (engineering and traffic)
f) Parking (vacancy, turnover, generation,
time limits, etc.)
g) Street, sidewalk, trail design (pedestrian
amenities)
h) Architectural treatment
8. Relocation
Certain uses may be requested to move from their
present location and a few may be displaced by
renewal action. It will 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 service stations,
lumber yards, and car dealerships 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 renewal objectives. Prefer-
ably, such design work should be commissioned by
the land owners and tenants affected under general
guidance of the over-all Plan concepts.
-25-
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 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 encouraging rehabilit-
ation 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 represent-
atives can meet to discuss renewal plans with City
officials. An early item discussed should be that
of discussing the possibility of private redevelop-
ment corporations and actions to be taken by
individual private land owners affected by the Plan.
13. Recreation
The Planning Commission and park and recreation
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.
-26-
The renewal 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 renewed interest,
confidence, and substantial 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.
-27-
APPENDIX
In addition to the maps included in this report, there are
a number of additional survey maps that were utilized in
the preparation of the concept plan and report. These
maps are the property of the Stillwater Housing Authority
as follows:
Environmental Deficiencies and Parking (Downtown)
Burlington Northern R.R. Ownership (Downtown)
Erickson Service Station Plat Plan
Stillwater Area Topography
Parking Demand (Downtown)
Building Use by Firm Name (Downtown)
Building Outlines (Downtown)
Land Use/Second Floor (Downtown)
Land Use/Third and Fourth Floors (Downtown)
Concept Plan for Downtown (by Jeff Zoller)
Concept Plan for Downtown (by Dan Stykes)
Sewer Lines
Water Surface Profile (St. Croix River)
Land Use and Parking Conditions Work Map (Downtown)
Overhead Lighting (Downtown)
Property Ownership (Downtown)
Property Taxes by Business for 1971 (Downtown)
Electrical Power Lines and Pole Locations ,(Downtown)
Street and Sidewalk Widths (Downtown)
Water Lines and Fire Hydrant Locations (Downtown)
R.R. Ownership by Chicago and N.W. (Downtown)
Interstate Bridge, Alternate Locations (M.H.D.)
Telephone Lines and Buried Cable (Downtown)
Additional information relative to the development of the
concept plan and report may be had through the Housing
Authority's planning consultant, Carl Dale (4826 Chicago
Avenue So., Minneapolis, Minnesota). This information
becomes the property of the Housing Authority on completion
of this study. Such information is as follows:
Legacy of Parks Guidelines
Minnesota Historical Society Preservation Guidelines
Slides of Downtown Stillwater (October, 1971)
Traffic Accident Situation (Downtown)
Soil Boring Data
Flood Situation Information
Detailed Land Use Data
Traffic Count (Downtown)
Industrial Development (N.S.P.)
ACKNOWLEDGEMENTS
The following firms and agencies are to be acknowledged
for their generous assistance in the development of this
report:
Bannister, Short, Elliott, Henderickson and Assoc.
Toltz, King, Duvall, Anderson and Assoc., Inc.
Washington County Highway Department
Minnesota Highway Department
Stillwater Water Department
Stillwater Police Department
Northern States Power Company
NW Bell Telephone Company
U.S. Army Corps of Engineers
Burlington Northern Railroads
Washington County Assessor's Office
Minnesota State Planning Agency
H.U.D. Regional Office
-29-