HomeMy WebLinkAbout2018-12-20 DTPC Packet
DOWNTOWN PARKING COMMISSION
AGENDA
Thursday December 20, 2018
8:30 AM Conference Room 213, City Hall
1. CALL TO ORDER
2. APPROVAL OF AGENDA
3. APPROVAL OF NOVEMBER 15, 2018 MINUTES
4. NEW BUSINESS
4.01. Bus, trailer and RV parking signs
5. UNFINISHED BUSINESS
5.01. Parking capacity improvement study – background info
6. UPDATES
6.01. Chestnut Street Plaza and the Downtown Plan
7. ADJOURNMENT
DOWNTOWN PARKING COMMISSION MEETING MINUTES
November 15, 2018
REGULAR MEETING
Chair Andersen called the meeting to order at 8:32 a.m.
Present: Chair Anderson; Commissioners Glynn, Hopfe, Johnson, Lettner, McAllister,
Peltier; Council Liaison Junker
Absent: None
Staff: Community Development Director Turnblad, Police Chief Gannaway, Officer
Pasket, Zoning Administrator Kohlhaas
APPROVAL OF AGENDA
Chair Anderson accepted the agenda as presented.
APPROVAL OF MINUTES
Commissioner Johnson clarified that the September 20, 2018 minutes erroneously attributed
Commissioner Johnson with accepting the agenda for that meeting rather than Chair Anderson.
The September 20, 2018 minutes were otherwise accepted as presented.
NEW BUSINESS
Downtown Parking Commission By-Law Changes
Turnblad introduced this item for informational purposes by describing the City Council’s
adoption of Resolution 2018-204 on September 18, 2018, which rescinded all former by-laws
and incorporated revisions into a single resolution for all boards and commissions. Resolution
2018-204, in addition to City Code Section 22-8, now form the basis for the Downtown Parking
Commission’s authority, responsibilities, and work framework.
Downtown Parking Commission November 15, 2018
Page 2 of 8
Chilson Parking Mitigation
Kohlhaas introduced this item by summarizing his staff report dated November 15, 2018. The
Chilsons own the building at 224 Main Street South and are converting a second-floor apartment
into a short-term home rental unit. Jeff and Tammy Chilson were present at the meeting.
The proposed use requires 1 parking space. The previous use required 1.5 parking spaces.
Though the proposed use requires less parking than the existing use, parking mitigation is still
required as part of the short-term home rental licensing process. The Chilsons have requested
that the public parking system be used for the deficit space.
Commissioner Anderson asked if there is any parking on-site. Jeff Chilson said that there are no
parking spaces on-site and clarified that while he had a verbal agreement with a neighboring
property owner to park on their property, that agreement would not be used for the short-term
home rental unit.
Council Liaison Junker asked if the Chilsons would try to get a residential parking permit for the
short-term home rental unit. Jeff Chilson said that yes, they would try to get a residential parking
permit for a nearby surface lot.
It was noted by the Commission that the proposed use does not have a larger parking
requirement compared to the existing use and would not likely result in an impact on the public
parking system. It was also noted that, though the 20% maximum for parking mitigation has
been exceeded, staff have been directed to study parking capacity for the downtown area during
winter 2019.
Therefore, Commissioner Peltier moved to approve the request with the two conditions included
in the staff report. The motion was seconded by Commissioner Hopfe and passed unanimously.
Francis Parking Mitigation
Kohlhaas introduced this item by summarizing his staff report dated November 15, 2018.
Katherine Francis owns the building at 120 Main Street North and have agreed with a tenant who
will operate a salon business in the first-floor space.
The proposed use requires 12 parking spaces. The space’s previous use as a retail space required
9 parking spaces, resulting in a request for mitigation of 3 parking spaces. There are no on-site
parking spaces available. Francis has requested that the public parking system be used for these
deficit spaces.
Turnblad clarified that the parking calculations used for this case do not include spaces to be
constructed for the Hotel Crosby project which will be available to the public. Council Liaison
Junker asked how many spaces that will be. Turnblad clarified that there will be 52 additional
spaces available to the public as part of the Hotel Crosby project. Commissioner Peltier stated
that the Commission should also consider parking impacts from St. Croix Boat and Packet in
future calculations for parking mitigation. Turnblad noted that parking for St. Croix Boat and
Downtown Parking Commission November 15, 2018
Page 3 of 8
Packet is typically not distributed evenly throughout the downtown, but is instead concentrated
to the south near the business.
It was noted that, though the 20% maximum for parking mitigation had been exceeded, staff
have been directed to study parking capacity for the downtown area during winter 2019. In
addition, the salon’s standard hours of operation do not overlap with high-capacity times during
the evening for the public parking system.
Therefore, Commissioner Peltier moved to approve the request with the two conditions included
in the staff report. The motion was seconded by Commissioner Glynn and passed unanimously.
Francis request for 15 minute designation
Turnblad introduced this item as a request by Katherine Francis, property owner of 120 Main
Street North, for a 15-minute designation to be placed on a parking space on the 100 block of
Main Street North for loading and unloading. Francis submitted a written request describing a
ticket they received while they were loading outside the property.
Turnblad provided context of “aggressive” parking enforcement that has taken place in the
downtown area. Turnblad also noted that there is only one parking space with a 15-minute
designation north of Myrtle Street in the downtown area, and encouraged a system-wide study of
parking in the downtown area to consider distribution of designated spaces such as these.
Council Liaison Junker asked how many parking spaces in the downtown area have a 15-minute
designation. Commissioner Glynn said he thinks there are 14 total. Turnblad provided an
updated map of the downtown parking system. Commissioner Peltier noted further updates could
be made to the map.
The Commission discussed time-designated parking spaces in other areas of downtown including
along Nelson Street East near Tin Bins.
Pasket noted that tickets are usually not issued for vehicles that use their hazard lights while
loading and unloading along Main Street, and that they encouraged businesses to load and
unload using alleys when available.
Council Liaison Junker noted that the Commission commonly receives requests for 15-minute
designations on public parking spaces, and that spaces with that designation should be distributed
throughout the downtown area.
Chair Anderson stated that the Commission should not set a precedent of approving a 15-minute
designation for a parking space every time a business owner receives a parking ticket.
Commissioner McAllister asked if there is a system in place to contact downtown business
owners for issues like this. Turnblad said that City staff do not have a system in place, but there
are existing networks through other organizations that might be utilized.
Downtown Parking Commission November 15, 2018
Page 4 of 8
Council Liaison Junker stated that summer 2019 is a good opportunity to get parking issues
settled considering the timing of construction projects underway in the downtown area. Turnblad
noted that there are delays in some projects which now may not be completed until the end of
summer 2019. Commissioner Hopfe asked for an update on the Plaza project and parking along
Water Street. Turnblad requested that that topic be moved to the Updates section of the meeting.
Commissioner Lettner said it would be good to get a statement from the officer who issued the
parking ticket in question.
Chair Anderson moved to deny the request for a 15-minute designation for a parking space on
the 100 block of Main Street North. The motion was seconded by Commissioner Glynn and
passed unanimously.
Hotel Crosby request for 15 minute designation
Turnblad introduced this item as a request by Shirleen Wright, General Manager of the Crosby
Hotel, for designation of three 15-minute parking spaces in front of the hotel along Main Street
North. The spaces are intended for guests to use while checking into the hotel before they move
their vehicles to the parking ramp, though the spaces would be available for the general public as
well. Turnblad noted that the original request was for three spaces designated as loading zones,
but he recommended that the request to be changed to 15-minute designations. Wright was
present for the meeting.
Commissioner McAllister asked for clarification on the location of the spaces. Wright said that
the spaces will be directly in front of the front entrance to the hotel, and that the spaces would be
available for valet or self-park before moving to the parking lot on 2nd Street North. Wright also
said that the front door would be staffed most of the day.
Commissioner Lettner asked about signage. Wright said there will be signage directing guests
from the front of the building to the parking lot. Turnblad noted that many guests initially
navigate to the front entrance upon arrival to the hotel.
Chair Anderson said he thought the request is conceptually good, though three spaces was too
many. Turnblad recommended that there be at least two 15-minute designated spaces. Council
Liaison Junker agreed that two spaces is a good amount.
Commissioner Peltier said that the Commission may later have to revisit the issue if they find
that a particular arrangement of 15-minute designated spaces doesn’t work.
Chair Anderson asked if there will be signage specific for the valet service. Wright said that they
did not plan to place such a sign at this time.
Commissioner Glynn asked about the typical hours for a 15-minute designated parking space.
Pasket said they are typically in effect from 8 a.m. to 6 p.m. Council Liason Junker said that the
effective hours for these spaces must be longer, and Chair Anderson said they should be in effect
at all times.
Downtown Parking Commission November 15, 2018
Page 5 of 8
Pasket said that if only two 15-minute designated spaces are to be approved, they should be the
first two spaces south of the driveway to Johnny’s TV at 242 Main Street North.
Commissioner Lettner asked if staff receive many complaints regarding parking in spaces with
15-minute designations. Pasket answered that they do not receive many complaints regarding
these spaces, and that they are often unenforceable.
Commissioner Lettner motioned to approve the designation of two 15-minute parking
designations for spaces recommended by Pasket. The motion was seconded by Commissioner
McAllister and approved unanimously.
Commissioner Peltier noted that other valet services in the downtown area are rarely full but
vehicles are still parking in the public parking system for those uses. Turnblad noted that they
should revisit use of valet services in the downtown area.
Jx Event request
Turnblad introduced this item by providing context for the property and previous parking
mitigation plans. Uses within the building have changed and parking mitigation requirements
have previously been reduced for this property through an agreed-upon annual review of event
attendance. Furthermore, some portions of the building operated at a 75% discount for parking
mitigation in recognition of the proximity of nearby public parking areas.
The request is to apply the 75% discount to the lower level of the building, which has a puzzle
room and a restaurant/catering business. Turnblad stated his hesitation to support the request
because it would be unique for these uses in the downtown area to receive a discounted parking
mitigation requirement.
Commissioner Peltier asked how many spaces would be mitigated. Turnblad answered that there
would be 39 spaces mitigated during the high-season and 31 spaces mitigated during the off-
season.
Chair Anderson said he recalled the original discount also being approved in recognition of the
sporadic nature of event scheduling, which does not necessarily apply to puzzle rooms and
restaurant/catering businesses.
Commissioner Peltier said she is not comfortable discounting parking mitigation requirements
for uses on the lower level of this property.
Chair Anderson moved to deny the request to apply the 75% discounted parking mitigation for
uses on the lower level of the building. The motion was seconded by Commissioner Peltier and
passed unanimously.
Downtown Parking Commission November 15, 2018
Page 6 of 8
UPDATES
Parking Capacity Improvement Study
Turnblad introduced this item following a discussion during the September 20, 2018 meeting of
the Downtown Parking Commission regarding the need for consideration of a parking study for
the downtown area and the 20% maximum for parking mitigation as a share of the public parking
system. Turnblad asked for feedback that will inform the work scope of the study, after which he
will issue a Request For Proposals to consultants. Turnblad described the RFP as necessary
considering current staffing/resource levels and as a way to generate community buy-in to the
project. Turnblad also explained that the study could be funded using parking enterprise funds.
Council Liaison Junker noted that it would be useful to include financial information regarding
the parking mitigation program to inform further discussions of the study in December 2018 or
January 2019. Turnblad indicated that information is readily available.
Commissioner Lettner asked for a general timeline the study would take to complete. Turnblad
said it depends on the scope of work.
Commissioner Peltier said the study should answer questions regarding how many employees
park downtown and what times they park there. Chair Anderson added that the study should also
answer how many residents park downtown and what times they park there. Turnblad said that
staff conducted a study of land uses including residential parking in the downtown area in
summer 2017, and that information regarding residential parking should be combined with
employee and visitor parking.
Commissioner McAllister said the study should also include information regarding businesses
with parking requirements which have been grandfathered in under previous zoning rules, and
thus do not require parking mitigation. Commissioner McAllister also added that the study
shouldn’t count on the construction of another parking ramp within the next 4 or 5 years.
Council Liaison Junker noted that some anticipated changes of use should be considered, such as
the proposal to use the Armory building for residences with parking accommodated on-site.
Council Liaison Junker also noted that employees are an important piece to consider and that the
time of day is also important, for example office uses during the day compared to hotel or
restaurant uses at night.
Commissioner Peltier described the need for door-to-door communication with businesses in the
downtown area. Turnblad explained that the staff study of uses in the downtown area took 6
months during summer 2017. Turnblad added that door-knocking alone will likely take more
than 3 months, and that he expected a 50% response rate would be considered a success.
Commissioner Peltier asked if an open-house would be useful for gathering data.
Commissioner Peltier also noted that it is important to consider, when developing the scope of
work, what the data will do for the Commission and what solutions they might inform. Council
Liaison Junker added that numbers and counts remain useful on their own.
Downtown Parking Commission November 15, 2018
Page 7 of 8
Commissioner McAllister asked how precise the study needs to be and if analytics would be
useful.
Council Liaison Junker noted that a 50% response rate for door-knocking seems low.
Commissioner Hopfe said that business owners don’t always know about the parking habits for
their employees.
Turnblad clarified the difference between a market study and a parking study, and stated that tax
data is obtainable for employee counts for downtown businesses.
Commissioner McAllister emphasized that the study should inform the Commission how to
approve requests for parking mitigation going forward considering, in part, that the 20%
maximum used in the past has now been exceeded.
Council Liaison Junker suggested using a sector-based approach splitting the downtown around
Myrtle Street or Chestnut Street. Turnblad explained that staff have past studies from the 1990s
and 2000s that have used this approach. Council Liaison Junker suggested those studies are
likely outdated.
Commissioner Hopfe said the study should also consider other reasons people come to
downtown besides working and shopping, such as visiting parks.
Turnblad suggested that he gather comments from the meeting and reach out to numerous
consultants that may be interested in conducting the study. Turnblad would then extend
invitation to a few consultants to come to the January meeting of the Downtown Parking
Commission for further discussion of this item.
Lift Bridge/Chestnut Street Plaza Project
Turnblad gave an update on the status of the Chestnut Street Plaza Project. Plans for the project
are incorporated in the Downtown chapter of the 2040 Comprehensive Plan, which must be
approved by the Metropolitan Council before it can be adopted and implemented. Turnblad
explained that MnDOT has around $2 million in bonding funds that may be available for
completion of the plaza project, which would be designed in 2020 and constructed in 2021.
Turnblad said he will bring a copy of the plan to the December meeting of the Downtown
Parking Commission for further discussion.
MISCELLANEOUS
The Commission noted that the December meeting of the Downtown Parking Commission will
include discussion of redistribution of designated parking spaces in the downtown area including
15-minute, 30-minute, 3-hour, loading zones, ADA, and other designations. Council Liaison
Junker expressed the need for consistency in this process. Chair Anderson expressed the need for
justification for any changes since some businesses may experience loss of a time-designated
Downtown Parking Commission November 15, 2018
Page 8 of 8
parking space. Commissioner Johnson said some of the responsibility should be on individual
property owners to bring requests to the Commission. Chair Anderson said that the Commission
can take some responsibility for overall redistribution and setting standards for the downtown
area. Turnblad expressed the need for engagement and communication with downtown
stakeholders before final changes are approved.
ADJOURNMENT
The meeting was adjourned at 10:03 a.m.
Respectfully Submitted,
Bill Turnblad, acting secretary
DATE: December 12, 2018
TO: Downtown Parking Commission
SUBJECT: RV, Bus and Trailer parking in Lots 1 and 2
MEMO BY: Bill Turnblad, Community Development Director
BACKGROUND
Parking enforcement staff struggled some this past season with RV, bus and trailer parking in
the city’s pay lots. Those are Lots 1 and 2. So, Enforcement Officer Pasket installed temporary
signs giving notice that such parking is not allowed in those two lots. The temporary signs look
like the attached picture.
Prior to next summer, a more permanent signage solution should be approved and installed.
COMMENTS
In order for a parking violation ticket to be sustained by a judge, the specific parking regulation
has to be adopted by the City in the form of an ordinance. And, signage identifying the
regulation has to be posted near the subject parking spaces.
Ordinance 1072 and Resolution 2015-030 (attached) specify where commercial vehicles and
trailers can park downtown. Lots 1 and 2 are not amongst the allowed locations. So, with
appropriate signage, tickets can be issued to commercial vehicles and trailers in Lots 1 and 2.
However, if the City wants to prohibit RVs from parking in Lots 1 and 2, that prohibition would
have to be approved by the Council in the form of an ordinance.
REQUEST
Staff requests the Parking Commission to consider two things. First, where should the signage
be located and what should it say? Second, consider where RVs should be allowed to park
downtown, and recommend to the City Council an appropriate ordinance amendment.
RECOMMENDATION
The more signs that are introduced into the downtown system, the less effective any signs are.
But, if we want a parking violation ticket to be sustained by a judge, we need to be fair about
signage. So, planning staff would recommend that we not add new signs, but that the new
language be added to signage at the pay stations in each lot.
Attachment: Trailer parking memo
bt
THE BIRTHPLACE OF MINNESOTA
TO: Mayor & Council
FROM: Bill Turnblad, Community Development Director
DATE: January 29, 2015
RE: Commercial Parking Downtown
BACKGROUND
The City has been experiencing difficulty with trailers and contractors parking in the Downtown
municipal parking lots. And, for tickets to be sustained by County judges for this type of parking
violation, the City needs to revise its parking ordinances and parking lot signage accordingly.
On January 6, 2015 the City Council held a public hearing and first reading for a proposed ordinance
amendment. No public testimony was offered and the Council closed the hearing. But, since there was
concern about completely prohibiting the parking of trailers and tow -vehicles downtown, the first reading
was tabled and continued to the January 20, 2015 Council meeting.
On January 20, 2015 the Council approved the first reading, with the understanding that trailer parking
would be allowed by resolution in: 1) Municipal Lot 12 (between The Lofts and the Zephyr Depot); and
2) in Bridgeview Park until development of the park makes the parking no longer possible.
COMMENTS
The final draft of the ordinance is attached. It is identical to the version approved in the first reading,
which prohibits contractor equipment parking anywhere downtown. It also prohibits boat and other
trailer parking "except in areas specifically designated" for it.
To formalize the "specifically designated areas", a resolution should be adopted. It is also attached.
ACTION REQUESTED
Staff requests the Council to hold the second reading of the ordinance. If the ordinance is found
acceptable, the Council would approve it and adopt the associated resolution.
bt
Attachment: Draft ordinance
Trailer parking resolution
ORDINANCE 1072
AN ORDINANCE AMENDING CITY CODE SECTION 51-2
RELATING TO PARKING REGULATIONS
The City Council of the City of Stillwater does ordain:
1) Section 51-2, Subdivision 2 of the City Code entitled "Commercial Motor
Vehicles" is amended to hereafter read as follows:
Subd. 2. Commercial motor vehicles. No motor vehicle over one-ton
capacity bearing a commercial license and no commercially licensed
trailer may be parked in any public parking lot or on any street or roadway
in any area in the city, except when such vehicle is engaged in loading,
unloading or rendering a service in the area involved, or when prior
authorization for the parking has been obtained from the chief of police.
2) Section 51-2, Subdivision 4 of the City Code entitled "Empty Boat Trailers in
CBD District" is amended to hereafter read as follows:
Subd. 4. Trailers in CDB District. No person may park any boat trailer or other
trailer on any street or alley or in any public parking lot located with the CBD
district (Central Business District—Zoning District) of the City, except in areas
specifically designated for trailer parking.
Enacted by the City Council of the City of Stillwater this 3rd day of February, 2015.
CITY OF STIL ER
Ted Kozlowski, Mayor
Attest:
G tr 8 k2a% - 4
Diane F. Ward, City Clerk
RESOLUTION NO. 2015-030
RESOLUTION DESIGNATING SPACES WHERE
TRAILERS AND THEIR ATTACHED TOW-VEHICLES
ARE PERMITTED TO PARK DOWNTOWN
WHEREAS, the Stillwater City Council passed Ordinance 1072 on February
3, 2015; and
WHEREAS, Ordinance 1072 states that "No person may park any boat
trailer or other trailer on any street or alley or in any public parking lot located with the
CBD district (Central Business District—Zoning District) of the City, except in areas
specifically designated for trailer parking".
NOW, THEREFORE, BE IT RESOLVED that the Stillwater City Council hereby
ilI designates the following areas in the CBD for trailer parking:
See Exhibits A and B.
BE IT FURTHER RESOLVED that parking in the designated trailer parking spaces is
subject to the following:
1. Trailers must have their tow-vehicles attached when in the designated trailer
parking spaces.
2. No overnight parking is allowed in the designated trailer parking spaces.
3. Parking in the spaces designated for trailer parking is not limited to trailers and
their tow-vehicles. Vehicles that are not towing trailers are also allowed to park
in these spaces.
Adopted by the Stillwater City Council this 3rd day of February, 2015.
Ted ozl. ski, Mayor
ATTEST:
Z26;t4-e
Diane F. Ward, City Clerk
Exhibit A
Trailer Parking in
Municipal Lot 12
Municipal Lot 12
East Laurel Street
Trailer parking spaces
in cross hatch pattern)
Exhibit B
Trailer Parking
Bridgeview Park
Trailer Parking
outlined in red)
DATE: December 1, 2018
TO: Downtown Parking Commission
SUBJECT: Study to increase parking capacity
MEMO BY: Bill Turnblad, Community Development Director
BACKGROUND
At the November Parking Commission meeting staff committed to assembling several
pieces of information for the pending parking capacity study. The information is intended
to start you thinking about the system and potential ways to increase capacity. Those
pieces of information are an updated map for the Downtown Parking System and
handicapped parking standards.
COMMENTS
The updated parking system map is attached. The most current version is dated 12/1/18.
The number of handicapped parking spaces required for parking lots, plus various design
details, are attached. Those requirements are compared in the table below to actual city
lots. The individual spaces are marked on the system map with very small squares.
Lot Total spaces Handicapped
provided
Handicapped
required
Compliant?
1 98 4 4 Y
2 84 3 4 N
3 22 1 1 Y
4 29 2 2 Y
5 7 1 1 Y
6 16 1 1 Y
7 16 1 1 Y
8a 51 2 3 N
8b 75 3 3 Y
9 30 2 2 Y
10 48 2 2 Y
11 45 2 2 Y
12 78 4 4 Y
13 13 0 1 N
14 47 3 2 Y
15 97 4 4 Y
16 60 2 3 N
17 75 4 3 Y
18 22 0 1 N
Parking capacity study
December 1, 2018
Page 2
Attachment: 2019 Parking System Map
ADA standards
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^
^
^
^
^
^
^
^
^
^
^
^
^
^
Lot 1
Lot 2
Lot 3
Lot 4
Lot 5Lot 6
Lot 7
Lot 9
Lot 8b
Lot 11 Lot 10
Lot 12
Lot 13
Lot 14
Lot 15
Lot 16
Lot 17
Lot 18
Lot 8a
M u lb e rry S tC o m m e rc ia l A v e
M y rtle S tC h e s tn u t S tO liv e S tN e ls o n S tMa
i
n St Wa
t
e
r
St
Se
c
ond St
Thi
r
d St
N e ls o n A lle yUnion Al
l
e
yP in e S t
CrosbyHotelramp
Lowell
Par
kLowell
Par
kLiftB ridgeT e d d y B e a rP a rk
P io n e e rP a rk Public ParkingDowntown Stillwater2019
Lot 1 (pay lot) -- 98 spacesLot 2 (pay lot) -- 84 spacesLot 3 (free lot - 3 hr) -- 33 spacesLot 4 (free lot - 4 hr) -- 29 spacesLot 5 (free lot - 4 hr) -- 7 spacesLot 6 (free lot - 3 hr) -- 16 spacesLot 7 (free lot - 3 hr) -- 16 spacesLot 8a ("private" *) -- 51 spacesLot 8b (free lot - 4 hr) - 75 spacesLot 9 (free lot - 4 hr) -- 30 spacesLot 10 (free all day; overnight by permit) - 48 spacesLot 11 (free all day; overnight by permit) - 45 spacesLot 12 (part free all day; no overnight here) - 78 spaces (part permit only;overnight allowed here) - 23 spacesLot 13 (free lot - 4 hr) - 13 spacesLot 14 (free lot - 4 hr) - 47 spacesLot 15 (free lot - 4 hr) - 97 spacesLot 16 (free after hrs) - 60 spacesLot 17 (free after hrs) - 75 spacesLot 18 (free lot - 24 hr) - 22 spacesPublic Ramp (pay) -- 248 spacesPublic level, Crosby (pay) 52 spaces
* Free public lot after 6 PM
1,247 off-street parking spaces: 1,206 general public 41 handicapped spaces 468 marked on-street spaces: 416 general public 15 handicapped spaces 14 15 minute spaces 4 30 spaces 19 Loading spaces 148 unmarked on-street spaces
1,862 total public spaces1,360 free public spaces (74.1%)
Map produced byCommunity Development Deptfor Downtown Parking CommissionDec 1, 2018
Legend
City Parking Lot
City Parking Ramp
Public - upper level
Trailhead Parking
Permit parking only
Private parking only
On-street handicapped
15 minute parking limit
30 minute parking limit
Loading/unloading
Bus loading/unloading
Bus parking
^Business Permit Valid
^DT Resident Permit Valid
Free parking
Pay parking
Free after office hoursLotparkingStreetparkingPermitsvalidFreeorPayMonthly Permits
(allows overnight parking)
DATE: December 11, 2018
TO: Downtown Parking Commission
SUBJECT: Chestnut Street Plaza
MEMO BY: Bill Turnblad, Community Development Director
In conjunction with the parking capacity discussion last month, several Commissioners
asked about plans for the Chestnut Street Plaza. So, I have attached the entire
Downtown Chapter of the draft 2040 Comprehensive Plan. It contains various projects
that directly affect the parking system.
Attachment: Ch 6 of Draft 2040 Comprehensive Plan
bt
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan 6-1
Chapter 6 - Downtown Stillwater Plan
Introduction
Downtown Stillwater has evolved through dynamic
incremental changes from the “Birthplace of Minnesota”
to a major destination as Minnesota’s iconic “River Town”.
Through its evolution the Downtown has been the subject of
numerous transportation, parking, planning, and design studies
that provide key resources on which to build. The following
mission statement from the 1988 Downtown Plan summarizes
the sentiment and intent of all the Downtown planning efforts
and has guided this 2018 update to the Comprehensive Plan:
The image and identity of Downtown Stillwater is of primary
importance. It is represented in its historic buildings, its natural
setting, and its dedication to open spaces, pedestrian accessibility,
and the river. The goal of the Downtown Plan is to enhance
and retain the historic rivertown image of Stillwater through a
conscientious and gradual process of change and economic growth
so that Stillwater, “the Birthplace of Minnesota,” continues to be a
special place to live, to work, and to visit.
Chapter 6 Contents
Introduction ........................6-1
Purpose ......................................6-2
Plan Update Influences ........................6-2
Community Based Planning ....................6-3
Study Area ...................................6-3
Background .........................6-5
Past Studies ..................................6-5
Existing Conditions and Downtown Objectives ..6-10
Downtown Stillwater Value Statements 6-19
A Riverfront Destination ......................6-19
Outdoor Recreation Gateway ..................6-19
Lively Arts and Culture Center. . . . . . . . . . . . . . . . . 6-19
Historic and Hip .............................6-19
It’s All Right Here ............................6-19
Where Everyone Knows Your Name ...........6-19
Pedestrians First .............................6-19
Appearances Matter ..........................6-19
Easy Access and Orientation ...................6-19
Stillwater for the Next Generation ..............6-20
Downtown Vision ..................6-20
Reinforce connections between the riverfront,
Lowell Park, Main Street and neighborhoods ....6-20
Focus streetscape treatments within a 10-minute
walk distance of core Downtown and adjacent
neighborhood ............................... 6-20
Preserve natural character of bluffs and river
along north and south gateways to Downtown ..6-21
Improve surface parking lot circulation and
connectivity .................................6-21
Re-use of spaces in upper floors ................6-21
Facilitate redevelopment ......................6-21
Improve alleys adjacent to businesses along
Main Street ..................................6-21
Create a Shared Street along Water Street ........6-25
Improve 2nd Street as a residential and service
corridor .....................................6-25
Transition parking lot along Lowell Park to a
destination park .............................6-25
Provide Additional Structured Parking ..........6-25
Enhance Downtown Circulation ...............6-25
Streetscape Design ...........................6-26
Goals and Policies ..................6-40
Land Use and Downtown Urban Design ........6-40
Transportation ...............................6-47
Parks, Trails and Riverfront ....................6-53
Historic Preservation and Sustainability .........6-54
Local Economy and Tourism ..................6-55
Implementation & Phasing of Public
Improvements ......................6-69
Implementation Responsibility .................6-69
Implementation Schedule .....................6-69
Implementation Strategies .....................6-72
6-2
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan
Purpose
The intent of the Downtown Plan update is
to continue to build upon the City’s successes
in sensitively promoting new development
and vitality in Downtown. This plan creates a
framework for growth that reinforces Stillwater’s
‘rivertown’ character and knits together a network
of streetscapes, open spaces, walkways, bikeways,
and land uses to create amenities, which will attract
and retain residents and businesses. It strives to
balance pedestrian, bicyclist and vehicular needs,
and to provide spaces for a variety of gatherings
and festivals.
The update to the Downtown Plan involved
gaining an understanding of previous planning,
synthesizing and weaving together the pertinent
aspects of past plans to maintain vision continuity,
while integrating new development influences.
Plan Update Influences
Planned Infrastructure Enhancements
The Downtown Plan needed to respond to several
new infrastructure projects that have the potential
to significantly enhance the character and vitality
of Downtown. The most prominent of these is the
planned opening of the new St. Croix Crossing.
This new bridge over the St. Croix River is expected
to significantly reduce vehicular congestion
in Downtown, thereby transforming the main
thoroughfare through Downtown (Highway 95)
back into a traditional Main Street environment. Not
only will the new bridge reduce traffic congestion,
but it will reduce noise pollution, improve historic
building districts, improve pedestrian comfort, and
will allow space within the Main Street right of
way currently used for vehicular turning lanes to
be reallocated to other uses.
Another infrastructure enhancement that will
accompany the new St. Croix Crossing is the
construction of a new 4.7-mile St. Croix Crossing
Loop Trail that will be incorporated into the new
bridge, extend north along the Minnesota side of
the river up to the historic lift bridge, cross the
lift bridge into Wisconsin and then return south
to the new bridge. As part of this new loop trail,
the historic lift bridge will be rehabilitated and
converted into an exclusive facility for pedestrians
and bicyclists.
In 2014, the Minnesota Department of Natural
Resources, finished construction of the Brown’s
Creek State Trail. This 5.9-mile trail makes an
important connection between the Gateway State
Trail and Downtown Stillwater. It is envisioned
that the combination of the new St. Croix Crossing
Loop Trail and the new Brown’s Creek State Trail
will make Downtown Stillwater a significant hub
of bicycling activity that will draw a new base of
visitors to Downtown.
Improve Downtown Vitality
Local Residents Re-discover Downtown
Community residents have expressed frustration
with visiting Downtown during periods of peak
congestion and have indicated that they avoid
Downtown for that reason. Upon opening the St.
Croix Crossing and the resulting reduction in traffic
congestion, it is expected that people (visitors,
residents, and workers) will be able to conveniently
and comfortably move around Downtown again.
It is a goal to increase local residents’ patronage of
Downtown, by making it quick and enjoyable to
come to Downtown to enjoy the riverfront and for
daily goods and services.
Create a Year-round Destination
Downtown Stillwater’s “busy season”, when most
tourists visit, typically occurs during the spring,
summer and fall months of the year. The slow
winter months can be a challenge for Downtown
businesses, as currently, there are few events
planned during the winter months to draw visitors
draw Downtown. This is compounded by the
fact that most current Downtown businesses are
primarily focused toward tourists. There is a desire
to reverse this trend by both increasing winter event
programming in Downtown and by providing
goods and services to attract local residents. In
order to better facilitate winter programming, some
modifications are desired in Downtown to improve
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan 6-3
visitors comfort and ease of movement, such as
the provision of winterized public restrooms and
thorough clearing of sidewalks to provide safe
pedestrian movement.
Increased Development Activity
Finally, economic conditions have continued to
improve since the last Downtown Plan update. The
City is starting to see increased development interest
in Downtown. The update of the Downtown plan
is a key opportunity to refresh and strengthen the
community’s vision for Downtown to help guide
development activity.
Community Based Planning
Some of the community’s greatest assets for the
comprehensive plan are the knowledge, interest
and contributions that its citizens, businesses, local
officials, and advisory commissions make to the
development of the community’s vision and next-
generation plan. The planning process provided
opportunities for community involvement in
creative and practical ways to help shape the future
of the historic Downtown.
Downtown Plan Advisory Committee
The Downtown Plan Advisory Committee (DPAC)
was appointed as the primary group to guide the
update of the Downtown Plan. The committee
included representatives of the City Council,
Downtown Parking Commission, Heritage
Preservation Commission, business owners, natural
resource protection advocates, and residents. The
DPAC met eight times over the course of the plan
update. This engaged committee was instrumental
in guiding the plan update and facilitating
discussions with their fellow city residents during
open house events.
Community Input and Feedback
The broader community had opportunities to
provide insight that informed the development
of the Downtown Plan and feedback on draft
materials. Two Community Workshops and two
Open Houses were held over the course of the
project. A compilation of community comments
received can be found in an appendix to this
chapter.
Agency Coordination
Coordination with the Minnesota Department of
Transportation (MnDOT) occurred over the course
of the project. MnDOT is a key project stakeholder
as this agency currently has jurisdiction over
Main Street, Chestnut Street and the lift bridge.
MnDOT will also need to maintain emergency and
maintenance access to lift bridge into the future.
Study Area
The boundaries of the Downtown Plan are loosely
defined as including both the Downtown core
area and its immediately adjacent Old Town
neighborhoods (See Figure 6.1).
6-4
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan
Figure 6.1: Downtown Stillwater
E Mulberry
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PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan 6-5
Background
Past Studies
The City of Stillwater has invested a significant
amount of time and effort studying the different
pieces of the Downtown puzzle. The Downtown
Plan will weave together the relevant findings and
outcomes from these past planning studies in an
effort to ensure that the Downtown remains viable.
The pertinent projects include:
• 1988 Stillwater Downtown Plan
• 1992 Renovation of Lowell Park Plan
• 1995 Comprehensive Plan
• Aiple Property/Kolliner Park Master Plan
(dated 12/8/98)
• Comprehensive Trail Plan (dated 11/16/00)
• North Main/Lowell Park Plan Update (dated
January 2004)
• Current and Future Trail Plan Revision
(BRA, 11/1/05)
• Shoddy Mills buildings relocated to Aiple
Property (SRF, dated 1/1/06)
• 2006 Design Manual, Commercial Historic
District
• 2008 Stillwater Comprehensive Plan (dated
June 1, 2010)
• Bridgeview Park Master Plan Update (dated
March 17, 2015)
• Stillwater Trails Master Plan: Pathways to
2040 (dated June 22, 2015)
The key recommendations for physical
improvements from the most relevant plans are
outlined below. Figure 6.1 provides a composite
view of the key recommendations of all the relevant
previous studies.
1988 Stillwater Downtown Plan – Prepared by
BRW, Inc.
This plan is one of several area plans developed
by the city subsequent to adoption of its 1979
Comprehensive Plan. The Downtown Plan was a
predominantly visual guide to meet the challenges
and opportunities of Downtown in the late 1980s.
Elements of the plan are listed as follows:
Land Use
• A new Central Business/Commercial District
recognizes existing uses and provides
direction for complementary commercial
uses.
• New parks, recreation and open space,
transportation, utilities and parking, and
public administration/office districts are
proposed to recognize existing development
patterns and guide new development.
• Nine special sites are identified because
of their importance to the Downtown and
special land use and design guidelines
proposed.
• Development opportunities identified in
the Economic Study are recognized and
included as preferred uses of special sites.
• The site of the Maple Island city parking
lot and Mulberry Point represent an
opportunity for a major mixed use
development, possibly including retail/
office/hotel uses.
Parking
• Alternative locations for parking structures
are identified at Second as well as at Olive
and Mulberry and Second Streets.
• A financing plan to pay for parking
improvements including possibly a parking
structure is proposed for a first year activity.
6-6
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan
Urban Design
• Relocate railroad car storage outside of
Downtown.
• Preferred land uses are shown along the
riverfront and North Main Street.
• A continuous riverfront pedestrian walkway
should link Downtown and other prominent
points in the planning area; i.e., Pioneer
Park, Lowell Inn, Broadway Overlook.
• Surface parking lots should be small and
well landscaped.
• A series of observation and interest points
should be connected by walkways to enable
the visitor to overlook the Downtown
and get a closer view of parks and sites of
interest.
Figure 6.2: Illustration from 1988 Downtown Plan
Figure 2. Illustration from 1988 Downtown Plan
• Streetscapes for the St. Croix riverfront,
Main Street, side streets, Water Street and
visitor center and plazas are proposed
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan 6-7
1992 Renovation of Lowell Park Plan – Prepared
by Sanders Wacker Wehrman Bergly, Inc.
Almost 80 years old at the time, Lowell Park was
showing its age and consequently the city became
interested in park improvements. In response this
1992 plan was created. Depending upon whether
improvements were to be undertaken in the
southern part of the park or the northern, there was
a specific set of proposed guidelines.
South Design Guidelines
• Develop a continuous riverfront pedestrian
walkway linking new and existing areas of
the Downtown.
• Create regular visual and pedestrian access
corridors linking the riverfront, Lowell Park
and Main Street.
• Design parking to serve both the Downtown
and Lowell Park. Screen views of lots from
within the park.
North Design Guidelines
• Upgrade Mulberry point to the passive
recreational and pedestrian character
defined by the Morrell and Nichols Lowell
Park Plan.
• Develop Mulberry Street into a more
formal ‘processional’ boulevard, linking the
riverfront and Main Street.
Figure 6.3: Illustration from 1988 Downtown Plan
Comprehensive Trail Plan (dated 11/16/00) –
Prepared by City of Stillwater
The goal for the 2000 trail plan was to develop and
maintain a city-wide network of interconnected
trails that provided valuable recreational and
transportation opportunities for city residents and
visitors. Goals specific to the Downtown area of the
city included examining potential trail sites, noting
their historical and natural setting, such as city
ravines, and greenways, along with their ability to
connect Downtown and residential neighborhoods.
North Main Street/Lowell Park Plan Update –
Prepared by SEH, January 2004
In 2002 the City of Stillwater purchased the last of the
railroad right-of-way that bisected the Downtown
area. The purchase was a major milestone that made
possible a number of potential improvements. To
give initial form to the possibilities, the city initiated
this 2004 study. Its key conclusions were:
• Expand Lowell Park area by 0.76 acres and
extend the park to Water Street.
• Organize and consolidate parking.
• Provide the opportunity for a visitor center/
restroom/hospitality center for Downtown
visitors.
• Locate a linear landscaped trail that
traverses the entire Downtown from north
to south.
Figure 3. Illustration from 1918 Morrell and Nichols Plan
6-8
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan
• Provide for strong pedestrian connections
between Main Street and the river.
• Accommodate community festivals,
farmers’ market, and special arts and crafts
events.
2008 Stillwater Comprehensive Plan (June 1, 2010)
– Prepared by Bonestroo
The 2008 plan introduced recommendations for
Downtown districts, Downtown focal points,
gateways and viewsheds. It also provided potential
locations for future structured parking.
Figure 6.4: Illustration from 2008 Stillwater Comprehensive Plan
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan 6-9
Figure 6.5: Bridgeview Park Master Plan
Bridgeview Park Master Plan Update (dated March
17, 2015) – Prepared by SRF/Baird
This park plan called for the provision of a trailhead
for the new St. Croix Crossing Loop Trail, along
with transient boat parking, a fishing pier and a
boat launch in this park. The transient boat docks
will serve the needs of boaters desiring to visit
Downtown Stillwater. The park plans outlined
in this document were assumed to be “given”
future conditions and provided the basis for the
Downtown Plan recommendations.
Stillwater Trails Master Plan: Pathways to
2040 (dated June 22, 2015) – Prepared by City of
Stillwater
This update to the city’s trail plan was prompted by
the completion of the Brown’s Creek State Trail in
2014 and the planned St. Croix Crossing Loop Trail,
as these two new regional trails have the potential to
make Downtown Stillwater a significant bicycling
hub. The master plan vision statement below
highlights the importance that is being placed on
this infrastructure opportunity and the potential
benefits it can bring to the City, and specifically,
Downtown.
Build on Stillwater’s history and natural setting to
become a leading active transportation community
and one of Minnesota’s premier trail destinations.
The Stillwater Trails Master Plan is incorporated
into the Parks and Trails Chapter of the
Comprehensive Plan. The planned trails outlined
in the Trail Master Plan document were assumed
to be “given” future conditions and provided the
basis for the Downtown Plan recommendations.
6-10
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan
Existing Conditions and Downtown Objectives
This section augments base information that has
already been documented in previous studies.
The primary purpose is to identify the unique
components of the existing Downtown that will
define design parameters and shape the design
alternatives.
Figure 6.6: Downtown Development Pattern
Development Pattern
The St. Croix River and its limestone bluffs have
strongly shaped the Downtown development
pattern. The core Downtown area is characterized
by traditional compact urban development, which
creates a pedestrian-scale. The fringe areas outside
of the core Downtown area, specifically north of
Mulberry Street and west of 2nd Street, evolve into
a more open, motor vehicle oriented, suburban
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan 6-11
development pattern that results in an undefined
pedestrian realm.
Downtown Parking
Sufficient parking that is easily accessed, well
signed and convenient is necessary Downtown for
the success of retail, office, services, tourism, and
community events. As of October, 2016 there were
3,440 parking spaces Downtown. The location of
the public spaces can be seen in Figure 6.7.
On-Street Public Parking 616 stalls
Off-Street Public Parking 1,226 stalls
Off-Street Private parking 1,598 stalls
Total Parking 3,440 stalls
Parking Along River Creates Barrier
A majority of the publicly owned parking lots
within the core Downtown, comprising roughly
75 percent of all public parking spaces, are located
adjacent to Lowell Park and the riverfront. The
location of these parking facilities creates a
psychological barrier for pedestrians. The wide
expanse of impervious surface void of trees and
pedestrian connections creates a diminished visual
image and barrier between Main Street and the
riverfront.
Parking Ramp on 2nd Street at Commercial
Avenue
In response to the North Main Street/Lowell Park
Update Plan of 2004, a structured parking lot was
constructed at 2nd Street and Commercial Avenue.
Three sites that were identified within the 2004
plan continue to be recognized as potential public
parking structure locations. The sites include:
the corner of 2nd and Mulberry Street, 2nd Street
between Chestnut and Olive, and 2nd Street at
Nelson.
Downtown Parking Objectives
The Downtown Plan identifies some key objectives
for the improvement of parking within the
Downtown. These key objectives are:
• Existing surface parking lots provide
opportunities for future redevelopment and
open space improvements.
• Look for shared parking opportunities
associated with redevelopment of parking
lots Downtown.
• Direct prime Downtown parking to
customers. Have employees park away from
prime Downtown spots.
• Create multi-purpose spaces within parking
lots that can be converted for public events
or gatherings.
• Utilize shuttles and remote parking for large
community events.
• Improve wayfinding to Downtown
parking. Incorporate technology to provide
information on parking stall availability.
• Define opportunities to relocate parking
within the Downtown core away from
Lowell Park and the riverfront, where
feasible.
• New parking should include technology to
cleanse and manage stormwater on-site.
• Improvements to existing public parking
lots should include more defined access,
pedestrian connections, edge treatments and
landscaping enhancements.
• With the closure of the lift bridge to
vehicular traffic, reallocate space no longer
needed for turn lanes to sidewalks and/or
on-street parking. The City will continue
to work with MnDOT to define space
allocation for the Main Street right-of-
way when the roadway is scheduled for
reconstruction.
6-12
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan
Figure 6.7: Public Parking
[
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Lot 11 Lot 10
Lot 12
Lot 15
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Lot 19
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Downtown Stillwater
2016
1,226 off-street parking spaces
468 marked on-street spaces
148 unmarked on-street spaces
1,842 total public spaces
1,412 free public spaces (76.7%)
Legend
City Parking Lot
City Parking Ramp
Trailhead Parking
Permit parking only
Private parking only
On-street handicapped
15 minute parking limit
30 minute parking limit
Loading/unloading
Bus loading/unloading
Bus parking
[Business Permit Valid
[DT Resident Permit Valid
Free parking
Pay parking
Free after office hoursLotparkingStreet parkingPermits validFree or PayMonthly Permits
(allows overnight)
Lot 1 (pay lot) -- 98 spaces
Lot 2 (pay lot) -- 84 spaces
Lot 3 (free lot - 3 hr) -- 33 spaces
Lot 4 (free lot - 4 hr) -- 29 spaces
Lot 5 (free lot - 4 hr) -- 7 spaces
Lot 6 (free lot - 3 hr) -- 16 spaces
Lot 7 (free lot - 3 hr) -- 16 spaces
Lot 8a ("private" *) -- 51 spaces
Lot 8b (free lot - 4 hr) - 75 spaces
Lot 9 (free lot - 4 hr) -- 30 spaces
Lot 10 (free all day;
overnight by permit) - 48 spaces
Lot 11 (free all day;
overnight by permit) - 45 spaces
Lot 12 (part free all day;
no overnight here) - 78 spaces
(part permit only;
overnight allowed here) - 23 spaces
Lot 13 (free after hrs) - 23 spaces
Lot 14 (free lot - 24 hr) - 8 spaces
Lot 15 (free lot - 4 hr) - 13 spaces
Lot 16 (free lot - 4 hr) - 47 spaces
Lot 17 (free lot - 4 hr) - 97 spaces
Lot 18 (free after hrs) - 60 spaces
Lot 19 (free after hrs) - 75 spaces
Lot 20 (free lot - 24 hr) - 22 spaces
Ramp (pay) -- 248 spaces
* Free public lot after 6 PM
Map produced for
Downtown Parking Commission
Nov 11, 2015
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan 6-13
Gateways and Viewsheds
Gateways
The gateways into the Downtown form the first
impressions, as well as provide a sense of orientation
for visitors (See Figure 6.8.) The primary gateway
corridors into Downtown Stillwater are:
• North/South gateways on both ends of Main
Street.
• East/West gateways into the Downtown on
Chestnut and Myrtle Streets.
Viewsheds
Views of the riverfront, limestone bluffs, significant
buildings, and other landmarks create a cognitive
map of the city and orient people within the
Downtown. The natural features that define the
boundaries of the Downtown also create long
encompassing views that allow you to see the entire
Downtown from one vantage point. The important
view corridors within the Downtown include:
• North of Terra Springs looking south on
Main Street into Downtown.
• South of the Oasis looking north on Main
Street into the Downtown.
• East along W. Myrtle, Mulberry and E.
Chestnut Streets from the top of the bluff
into the core Downtown and the riverfront.
• North and south along 2nd, 3rd, and 4th
Streets from the top of the bluff into the core
and fringe Downtown areas.
The Downtown Plan identifies some key objectives
for the improvement of the gateway and view
corridors within the Downtown. These key
objectives are:
• Preserve natural character of bluffs and
river along north and south gateways to
Downtown. Enhance these corridors with
native landscaping, frame views to the
Downtown, improve pedestrian connections
and open views to river.
• Shape edge of gateway corridors with
architecture, landscaping and sign
ordinances.
• Reinforce natural features, landmarks,
steeples and significant structures along
gateway corridors.
• Reinforce E. Olive, W. Myrtle, Mulberry and
E. Chestnut Streets as primary pedestrian
view corridors into the Downtown with
emphasis placed on creating an appealing
viewshed down Chestnut Street to the
Historic Lift Bridge.
• Include wayfinding at gateway locations
that speaks to a variety of transportation
users (pedestrians, bikes, personal vehicles),
as well as informs visitors about the variety
of experiences within the Downtown area
(commercial, entertainment, recreational,
etc.).
• Connect people directly to the River.
Downtown Focal Points
Focal points orient visitors, contain edges, provide
visual stepping stones and reinforce, enhance and
terminate vistas within Downtown Stillwater.
These focal points represent some of the more
memorable architectural and cultural elements in
the Downtown. Primary Focal Points include:
• Staples Mill
• Historic Lift Bridge
• Historic County Courthouse
• Several city bluff stairways
• Several Downtown churches
• Lowell Park
Downtown Transportation
Traffic Conditions
Existing congestion on the Hwy 95 corridor is caused
by the Hwy 95 and Chestnut Street intersection due
to traffic using the lift bridge and it being a high
activity area for pedestrians. This congestion is
magnified when the lift bridge is raised, blocking
traffic for five minutes at a time and creating
queues on Hwy 95 and Chestnut Street that further
impact other Downtown intersections. There is also
an existing restriction to the northbound left-turn
movement at Hwy 95 and Chestnut Street.
6-14
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan
Figure 6.8: Gateways and Viewsheds
PIONEER PARK
AIPLE PARK
LOWELL
PARK
TEDDY
BEAR
PARK
Downtown Project Boundary
Park/Public Open Space
View Corridors
Views
Focal Points
Existing Vegetation Massings
LEGEND
Vista Points
Gateway Nodes
ENHANCE MAIN STREET
AS PRIMARY GATEWAY INTO
DOWNTOWN
ENHANCE N. MAIN STREET
AS PRIMARY GATEWAY
INTO DOWNTOWN
ENHANCE NODES
WITH LANDSCAPING AND
SIGNAGE
Downtown Project Boundary
Park/Public Open Space
View Corridors
Views
Focal Points
Existing Vegetation Massings
LEGEND
Vista Points
Nodes
Gateways
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan 6-15
Transit Service
Downtown Stillwater is served by Metro Transit
Route 294 that provides weekday express bus
service during the morning and evening peak
commuter periods. The route enters Downtown
via Pine Street and 3rd Street. It then continues
to the heart of Downtown on Myrtle and makes a
loop using Water Street, Mulberry and Main Street.
The bus route then reverses its route and exists
Downtown. Given the limited transit operations
in Downtown, it should be expected for the
foreseeable future that a majority of visitors will
travel to Downtown using a car, requiring the need
to provide parking stalls for these vehicles.
Five and Ten Minute Walk Distance
One objective of the Downtown plan is to
encourage walking by defining safe, comfortable
and appealing routes from the neighborhoods,
peripheral Downtown uses and parking areas
to Main Street and the river. One-quarter mile
is the approximate distance a person can walk in
five minutes and is generally the distance people
will consider walking to amenities, shops, and
services. Beyond that distance, a car may become
more appealing. Facilities within the five-minute
walking distance of the core Downtown include
retail shops, professional offices and restaurants,
public open spaces including Lowell Park and
Teddy Bear Park, and numerous historic sites
including the Lowell Inn, the Freight House, Water
Street, and the Historic Lift Bridge. The fringe
areas are generally within a ten-minute walk of the
core Downtown. Included within this ten-minute
walking distance are the post office, the city hall,
public library, police/fire station, the veteran’s
memorial, Pioneer Park, and several churches.
Primary and Secondary Pedestrian Circulation
The primary pedestrian circulation occurs within
the core Downtown and along the riverfront.
Secondary pedestrian circulation occurs within the
fringe areas of the Downtown. Currently within
the Downtown there is a nearly complete network
of sidewalks to support the primary and
secondary circulation. Some key objectives for
pedestrian circulation within the Downtown
include:
• Opportunity to enhance primary and
secondary circulation systems with
additional pedestrian amenities and
wider sidewalks when feasible
• Provide a hierarchy of streetscape
treatments that reinforce the historic
character throughout Downtown
• Improve secondary pedestrian
connections to adjacent neighborhoods
with landscaping, lighting, signage
and pedestrian crossings
• Improve the safety and comfort
of pedestrians by creating curb
extensions at corners, high-visible
crossings and raised pedestrian
crosswalks in the Downtown core,
where feasible
• Consider improvements at bus stops
within the Downtown core to improve
access to public transportation
• Improve all-season handicap
accessibility throughout the
Downtown area
• Create key pedestrian connections
from parking areas along Water Street
to Lowell Park
• Enhance the pedestrian experience
along the water’s edge at Lowell Park
Bicycle Circulation
Currently, 3rd Street is planned to serve as
the primary north-south bikeway through the
Downtown, with Laurel Street, Myrtle Street,
Chestnut Street, and Pine Street providing
an east west connection. In the future,
Chestnut Street will play a more important
role in connecting bicyclists to Stillwater,
as well as through Downtown. With future
limited access to vehicles along the Historic
6-16
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan
Figure 6.9: Pedestrian and Bicycle Connections
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Park/Public Open Space
Pedestrian/Vehicular Conict
Proposed Bike Route
Stairs
LEGEND
Existing Trail
Future Trail
Bus Route
Pedestrian Barrier
Proposed Bike Lane
Primary Ped Circulation
Secondary Ped Circulation
Vista Points
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan 6-17
Lift Bridge, Chestnut Street will serve as an east-
west bikeway connection from across the river to
3rd Street. On-street facilities, such as painted bike
lanes or sharrows, will enhance these bikeways.
To complement planned bicycle facilities,
strategically placed bicycle parking will play an
important role, especially along the waterfront,
and at the edges of the Downtown core. Bicycle
parking located in these areas will encourage local
and regional bicyclists to park along the edges
and transition as a pedestrian through commercial
areas.
Future Trail Connections
There are currently a few trails that travel through
the Downtown, such as the Brown’s Creek State
Trail, in addition to a few segments of city trails.
The planned St. Croix Crossing Loop Trail is a 4.7-
mile bicycle and pedestrian trail, which is part of the
St. Croix Crossing Project. This project includes the
rehabilitation of the Historic Lift Bridge to be used
exclusively as a pedestrian and bicycle facility. The
rehabilitated lift bridge to pedestrian and bicycle
use is scheduled to be open by 2018.
Each proposed trail and/or connection will provide
a missing link to create a complete park and trails
system for the Downtown. Other future trail and
pedestrian connections include:
• Closure of the existing trail gap through
Downtown
• Improve wayfinding to the Mulberry Ravine
Trail and increase public awareness of this
trail.
• Streetscape and open space connections
between the riverfront, parking and Main
Street
• Future riverfront trail connections north and
south to adjacent public open spaces
Parks and Open Space
Downtown Stillwater has attractive gathering
places and spaces for outdoor events. There
are three primary park spaces that cater to a
wide variety of resident and visitor activities
and needs. The three park spaces are Lowell
Park, Teddy Bear Park and Pioneer Park.
Additionally, a pocket park has been created
at the water’s edge south of Dockside Cafe on
Nelson Street to provide space for picnicking,
bicycle parking, and viewing areas along the
river.
Primary recommendations to improve the
parks and open space system within the
Downtown include:
• Create multi – functional open spaces
within the Downtown to attract a
variety of users and enhance year-
round attractions
• Balance special events with day-to-day
activities in Lowell Park
• Define more opportunities for pocket
parks, green space and outdoor cafes
to create street level activity
• Increase accessibility and visibility to
Lowell Park and to the river
• Expand riverfront open space
• Integrate plans for Bridgeview Park
and Aiple Park
• Coordinate and design event spaces
with views at Lowell Park
• Coordinate new open spaces with
pedestrian and bicycle routes
6-18
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan
Figure 6.10: Downtown Area Parks & Open Space
BRIDGEVIEW
PARK
POCKET
PARK
PIONEER PARK
MULBERRY
RAVINE
TRAIL
AIPLE PARK
LOWELL
PARK
TEDDY
BEAR
PARK
Downtown Project Boundary
Park/Public Open Space
Existing Vegetation Massings
Proposed Bike Route
Stairs
LEGEND
Existing Trail
Future Trail
Blu Line
Ridge
100-year Floodplain
Proposed Bike Lane
Vista Points
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan 6-19
Downtown Stillwater Value Statements
The Downtown Plan update process started with
the development of value statements that expressed
what community members felt was the essence of
Downtown Stillwater and what existing and future
characteristics should be preserved or strived for as
Downtown continues to transition and respond to
market and environmental conditions.
A Riverfront Destination
Downtown is a premier national riverfront
destination that attracts and welcomes both
residents and visitors. The St. Croix River and
river valley are central to Stillwater’s sense of place
and well-being. Public riverfront property allows
people to physically, visually, and spiritually
experience the river.
Outdoor Recreation Gateway
Downtown is the recreation gateway to the St. Croix
River Valley that attracts and supports outdoor
recreation enthusiasts, who come to enjoy spending
time in the river valley whether it is boating on the
river, biking in the valley, walking or skating next
to the river, or enjoying views of the scenic river
and river activities. Outdoor recreation is a year
round activity in Downtown.
Lively Arts and Culture Center
The arts are valued by the community. Downtown
plays a significant role in the regional arts and
culture scene. Both residents and visitors have
abundant opportunities to engage with the arts,
whether independently viewing a temporary
or permanent artwork in the public landscape,
participating in an arts activity, or attending a
theater or music performance.
Historic and Hip
While Downtown, Minnesota’s birthplace, has a
charming historic atmosphere, it remains vital and
relevant. The historic significance of Downtown is
interpreted and made available for people to learn
about and enjoy. While preserving Downtown’s
historic resources is paramount, Downtown is not
frozen in time. Sensitive adaptive reuse of historic
buildings and landscapes and redevelopment
that is complementary to its historic character is
facilitated. In this way, Downtown continually
evolves to meet current community needs and
therefore is actively “making history”.
It’s All Right Here
Downtown is a place where people can live, work,
shop, and recreate in a historic and hip riverfront
atmosphere. With a diverse range of uses, a
welcoming and engaging atmosphere, and unique
activities and events oriented to a range of ages and
cultures, Downtown businesses successfully attract
city residents and tourism year round without
overwhelming Downtown resources.
Where Everyone Knows Your Name
Stillwater is a community where everyone’s voice
is important. Residents actively participate and
are engaged in shaping the future of Stillwater and
fostering a strong sense of community. Stillwater is
a place where you know and care for your neighbor,
which in turn, provides a safe environment.
Pedestrians First
While pedestrians, bicycles, transit, and cars are
desired and accommodated in Downtown, it is an
environment where residents and visitors primarily
walk to reach Downtown destinations. Paths and
places are safe and comfortable in day or evening
and are accessible by all.
Appearances Matter
Keep Downtown beautiful. Present a cohesive,
welcoming streetscape with well-maintained
storefronts and sidewalks in all seasons. Be attentive
to the aesthetics of new Downtown features. New
development complements Downtown’s historic
character, existing building massing, scale, and
materiality.
Easy Access and Orientation
Travel to, from, and in the midst of Downtown is
well-articulated and convenient for pedestrians,
bicycles and vehicles. Orientation to Downtown
destinations, businesses, and parking is easy to
understand. Access to Downtown is safe and
universal in all seasons.
6-20
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan
Stillwater for the Next Generation
The St. Croix Wild and Scenic River is protected
and enhanced for future generations. Future
development and Downtown activities are
supportive of the river’s natural beauty and respect
the limited resource of the Downtown’s built
and natural environment. Sustainable initiatives
support environmental health in Downtown.
Downtown Vision
The Downtown vision is intended to guide
public and private development in the Downtown
Stillwater. It is also intended to identify
improvements to the public realm that would
reinforce, enable and encourage well planned
growth. The Downtown vision helps guide future
development. The vision also weaves together
the relevant components of numerous previous
studies and planned future conditions into a single
integrated document.
The Downtown vision, illustrated in Figure 6.11,
is shaped by the numerous opportunities that
emerged from the analysis of existing conditions,
as well as findings from previous planning studies.
The primary opportunities for redevelopment and
public investment identified through past studies
and meetings with city staff, public workshops, and
the Downtown Plan Advisory Committee include:
Reinforce connections between the riverfront,
Lowell Park, Main Street and neighborhoods
The riverfront, parks, trails, stairways, and
streetscapes create a network of connections
and amenities which will continue to attract
and retain residents and businesses, balance
pedestrian and vehicular needs, and provide the
necessary connections to create an integrated
circulation system within the Downtown. The
current circulation system provides opportunities
to strengthen and enhance open spaces and
connections. Some of the potential enhancements
to the current circulation system include:
• Define areas for pedestrian corridors from
parking lots to the Downtown core
• Define north-south corridors for pedestrians
along the east and west sides of Lowell Park
• Improve pedestrian and bicycle connections
along the river north and south of Lowell
Park
• Enhance riverfront open space with
elements that reflect the historic nature of
Lowell Park
• Create separated bicycle and pedestrian
facilities where feasible
• Reinforce pedestrian connections with
streetscape treatments, such as a pedestrian
plaza at Chestnut Street (see Figure 6.12 for
Chestnut Street Pedestrian Plaza Concept
Design)
• Reinforce pedestrian safety with facilities
such as curb extensions, raised pedestrian
crossings, pavement and surface treatments,
and protected walkways
• Along Main Street, improve pedestrian
safety by providing leading pedestrian walk
signals and countdown timers at signals
• Create a north-south bicycle connection
through Downtown
Focus streetscape treatments within a 10-minute
walk distance of core Downtown and adjacent
neighborhood
Many of the streets within a block of Main Street
have very narrow rights-of-way and are utilized
very efficiently. However, many of the secondary
streets adjacent the core have wider underutilized
rights-of-way. A hierarchy of streetscape treatments
is recommended to emphasize and respond to the
different Downtown districts, role and function of
each street within the Downtown.
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan 6-21
Preserve natural character of bluffs and river
along north and south gateways to Downtown
Improve surface parking lot circulation and
connectivity
Currently, traffic entering and exiting parking lots
along Water Street create a barrier for pedestrian
connections to the riverfront and Lowell Park,
as well as add to vehicular congestion along the
riverfront. Limiting traffic to one-way circulation
and encouraging vehicles to exit and enter the
parking area at specified access points will increase
the efficiency of these parking areas.
Re-use of spaces in upper floors
A number of buildings along Main Street have
upper floors with potential for adaptive re-use
as residential units. This will improve conditions
along the street frontage, contribute to improved
accessibility and promote street-level activity
throughout the day.
Facilitate redevelopment
Eight potential redevelopment sites are identified
for Downtown (Table 6.1). Redevelopment sites
located on private parcels are envisioned to be
market driven opportunities. The City would
take a lead role in initiating redevelopment on
City-owned property. Potential uses for each site
as described below, with an understanding that
market conditions will influence ultimate uses for
these sites should they redevelop.
Improve alleys adjacent to businesses along
Main Street
Alley improvements will better connect pedestrians
from the interior of blocks along Main Street to
east-west Downtown connections along Chestnut
Street and Olive Street. These improvements will
create a more friendly and inviting environment
for pedestrians to access businesses. These
improvements can include aesthetic upgrades,
Site Number Site Description Potential Uses
1 Teddy Bear Park
Block
High density residential with ground level retail oriented towards
2nd Street and structured parking
2 Armory Reuse with ground level retail or services oriented towards 2nd
Street and structured parking
3 3rd Street and Myrtle
Street Infill Ground level retail or services with upper level residential
4 Mulberry Street and
2nd Street Mixed use: hotel, retail, or services with structured parking
5 Gas Station Ground level retail with upper level office
6 Water Street Inn
Addition Restaurant
7 Main Street and
Mulberry Street Infill Ground level retail with upper level office or residential
8
Main/
Commercial/2nd/
Mulberry Block
Mixed use: hotel, retail, service, or residential with structured
parking
Table 6.1: Potential Redevelopment Sites
6-22
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan
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PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan 6-23
Figure 6.11: Downtown Vision
CHESTNUT
STREET
PLAZA/PROMENADE
POTENTIAL
DESTINATION
PARK
FRAMEWORK PLAN
Downtown Core Gateway
LEGEND
Second Street Residential
& Service Corridor
Study Area Boundary
Stairs
Existing Trail
Future Trail Alternatives
Proposed Bike Lane
Proposed Bike Route
Key Pedestrian Connection
Park
Civic
Potential Redevelopment Site
Additional Redevelopment
Expansion
Alley Improvements
Chestnut Street Plaza
Main Street Streetscape
Water Street Shared Use
Corridor
Parking Lot Adjustment
Signalized Intersection
WINTERIZE
PUBLIC
RESTROOMS
PRIVATE
PARKING LOT
PRIVATE
PARKING LOT
HISTORIC
STAIRS
EXISTING
TRAIL TO
NELSON ST
HISTORIC
STAIRS
LIBRARY
CITY HALL
POLICE
MULBERRY
RAVINE
TRAIL
TEDDY BEAR
PARK
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REDEVELOPMENT SITES
SITE NO.SITE DESCRIPTION
1 Teddy Bear Park Block
2 Armory
3 3rd Street and Myrtle Street In ll
4 Mulberry Street and 2nd Street
5 Gas Station
6 Water Street Inn Addition
7 Main Street and Mulberry Street In ll
8 Main/Commercial/2nd/Mulberry Block
6-24
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan
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PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan 6-25
improved lighting, and consolidated trash locations
and pick-up schedules.
Create a Shared Street along Water Street
Water Street has a unique character within the
Downtown Stillwater area, as businesses have
created secondary access points, orienting parking
and pedestrian entries to the river and Lowell Park.
Service and deliveries occur at these access points
as well. Pedestrians and vehicles currently share
the space on an informal basis. Should Chestnut
street be converted to a pedestrian plaza, Water
Street will still cross the plaza, creating a “shared
intersection.” Formally designating Water Street as
a shared street formalizes current activities and sets
the expectation of how pedestrians and vehicles will
interact in the Chestnut/Water shared intersection.
Improve 2nd Street as a residential and service
corridor
Improvements along 2nd Street should focus on
street-level service uses. This will allow for more
concentrated retail uses along Main Street. 2nd
Street also has opportunities for creating additional
areas for housing above the ground level with high
density housing (apartments or condos).
Transition parking lot along Lowell Park to a
destination park
There has been interest voiced to create a year-round
draw to the waterfront, as well as year-round draw
to the Downtown area from the community and
beyond. An opportunity exists to target the parking
lot areas between Mulberry Street and Commercial
Plaza for re-development as a destination park,
which could host a playground, pavillion, winter
skating loop, or staging for various public events.
Provide Additional Structured Parking
Three locations have been identified for potential
future structured parking. These locations have been
brought forward from the previous comprehensive
plan. The sites include: the corner of 2nd Street
and Mulberry Street, 2nd Street between Chestnut
and Olive Streets, and 2nd Street at Nelson Street.
• Before the construction of structured
parking at any of the locations occurs,
additional feasibility analysis and public
input would occur.
• The order in which these potential sites are
listed does not imply a proposed order of
implementation.
• Construction of structure parking at several
of these sites may occur concurrent with site
redevelopment activities.
• Any new structured parking in Downtown
will complement the architectural fabric of
the Downtown historical setting.
Enhance Downtown Circulation
Figure 6.12 on the following page demonstrates a
conceptual design of streetscape improvements
along Main Street, Water Street, and the east-west
Streets connecting Main Street to Lowell Park, as
well as enhanced park amenities. This conceptual
design demonstrates the spatial feasibility of the
goals and objectives described throughout this
chapter:
• Construct bicycle thru-route linking
Brown’s Creek State Trail through
Downtown; connecting to the rehabilitated
lift bridge and to the existing trail leading to
Bridgeview Park
• Close Sam Bloomer Way to automobile
traffic, creating a Riverfront Promenade
• Create a north-south pedestrian way
between parking lots along the St. Croix
River to facilitate pedestrian connections
from parking to both the waterfront and to
Downtown commercial areas
• Reconfigure vehicle circulation through
parking lots adjacent to Lowell Park to focus
vehicle traffic at specific east-west streets,
such as Myrtle Street
6-26
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan
• Create a pedestrian plaza and concourse
plaza at Chestnut Street with limited
vehicular access to facilitate pedestrian-
oriented open spaces and expand upon
event space connecting Main Street to
Lowell Park and the riverfront
• Enhance pedestrian walkways along all
streets (Nelson Street, Chestnut Street,
Myrtle Street, Commercial Street, and
Mulberry Street) between Main Street and
Lowell Park
• Integrate curb extensions at intersections
along Main Street to enhance the pedestrian
experience and promote street-level activity
• Remove merchandise, advertising signage,
and non-authorized seating from narrow
sidewalks to enhance pedestrian movement
and comfort
• Identify redevelopment opportunity sites
to further augment commercial uses in the
Downtown core
• Locate specific bicycle parking at areas
of rest, viewing areas, and encouraging
transition to pedestrian activity towards
Main Street
Streetscape Design
A variety of streetscape treatments are
recommended to emphasize and respond to the
different Downtown districts and to the specific role
and function of each street within the Downtown.
Many of the streets within a block of Main Street
have very narrow rights-of-way and are utilized
very efficiently. However, several secondary streets
adjacent the core have wider underutilized rights-
of-way. This presents an opportunity to use the
area more efficiently and create more “complete”
streets that balance the need to provide vehicular
capacity and parking with pedestrian and bicyclist
safety and comfort. Travel to, from, and through
Downtown should be well-articulated and
convenient for bicycles, pedestrians, and vehicles.
Orientation to Downtown destinations, businesses,
and parking should be easy to understand, and
access to Downtown Stillwater should be affordable,
safe, and universal in all seasons.
General streetscape design recommendations have
been identified for Downtown, and include the
following:
• Gateways
• View Corridors
Specific streetscape design recommendations have
been identified for the following:
• 3rd & 4th Street Institutional Corridors
• 2nd Street Residential and Service Corridor
• Main Street Streetscape
• Water Street Shared Use Corridor
• East-West Link Streets
* Chestnut Street Plaza
* Commercial Street and Plaza
• Activated Alley Improvements
• Secondary Activity Streets
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan 6-27
SAM BLO
O
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R
W
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POTENTIAL
PARKING
RAMP
POTENTIAL
PARKING
RAMP
RIVERFRONT CIRCULATION_CONCEPT A
CLOSE SAM BLOOMER WAY TO AUTOMOBILE TRAFFICTHE CONCOURSE PLAZA
PROVIDE MNDOT BRIDGE
ACCESS FOR MAINTENANCE
MYRTLE STREET PLAZA
SINGLE LOADED PARKING LOT
W/ PARALLEL PARKING ALONG WEST SIDE
ADDITIONAL BIKE PARKING
PARKING LOTS CONNECTED
PEDESTRIAN PLAZA
CLOSED TO VEHICULAR CROSSING
OPEN EVENT SPACE
KIOSK AT TERMINUS OF
DOWNTOWN PROMENADE
WATER STREET: SHARED STREET
ALTERNATE BIKE ROUTE IN HIGH WATER
BIKE PARKING
ADD SIDEWALK AT EDGE OF PARKING LOT
PARKING LOTS CONNECTED
ADD BUM
P
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PARKING
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PUBLIC
PARKING
PUBLIC
PARKING
PRIVATE
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LANES
PRIVATE
PARKING
PUBLIC
PARKING PUBLIC PA
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PUBLIC
PARKING
CHESTNUT STREET
PLAZA
RE-ALIGN DRIVE ACCESS
BIKE LANE
ON BRIDGE
200’N
RIVERFRONT PROMENADE
D O W N T O W N P R O M E N A D E
D O W N T O W N P R O M E N A D E
R IV E R F R O N T P R O M E N A D E
POTENTIAL
PARKING
RAMP
PEDESTRIANS ONLY
KEY
PED PLAZA
PARK/OPEN SPACE
RE-DEVELOPMENT OPPORTUNITIES
PROMENADE TRAIL CONCEPT*
WATER PROMENADE TRAIL CONCEPT*
* ADDITIONAL STUDY RECOMMENDED
WATER STREET TRAIL CONCEPT*
RE-CONFIGURED PARKING LOT
ELECTRICAL TRANSFORMERS
BIKE FACILITIES
PEDESTRIANS ONLY
KEY
PED PLAZA
BIKE TRAIL THRU-ROUTE
PARK/OPEN SPACE
RE-DEVELOPMENT OPPORTUNITIES
PROMENADE CONCEPT*
WATER STREET/ PROMENADE CONCEPT*
* ADDITIONAL STUDY RECOMMENDED
WATER STREET CONCEPT*
RE-CONFIGURED PARKING LOT
ELECTRICAL TRANSFORMERS
BIKE FACILITIES
OPTION B: RAISED PEDESTRIAN CROSSING
OPTION A: PEDESTRIAN PLAZA
Figure 6.12: Enhanced Downtown Circulation
6-28
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan
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PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan 6-29
Gateways: Preserving the Essence of Stillwater
The streets classified as gateways are the approach
routes and gateways to the Downtown core for
local and regional traffic. These street segments
should signal to motorists they are entering a
Downtown district and streetscape elements should
be used to encourage slower speeds and reduce
the perceived scale of the street. Treatments may
include boulevard trees, distinctive lighting, entry
monuments, and directional signing. Gateways
include:
• Trunk Highway 95 north and south of
Downtown
The limestone bluffs, woodlands and views
to the St. Croix River valley shape the
character of the gateways in these segments
and should be preserved.
• Myrtle Street west of 3rd Street
The most dramatic view of Stillwater’s
natural setting is from the top of the bluff
as you approach Downtown on Myrtle
Street. The street corridor, shaped by trees,
buildings and limestone walls, directs
your view to the gazebo, river and bluffs
beyond. Future infill development should
reinforce the view corridor through building
placement, architecture, materials and
streetscape treatments. The Comprehensive
Plan also proposes a city bike path be
included within the Myrtle Street corridor.
• Chestnut Street at the Historic Lift Bridge
With the renovation of the Historic Lift
Bridge, and conversion to a pedestrian and
bicycle entryway Downtown Stillwater,
there is opportunity to create a gateway
that will introduce visitors to Stillwater
at an appropriate scale for these users.
Interpretive signage, pedestrian-scaled
lighting, and landscaping will help direct
visitors and residents to bike racks,
businesses, benches, and points of interest at
Lowell Park.
6-30
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan
Figure 6.13: Proposed Street Treatment for 4th Street
3rd & 4th Street Institutional Corridors
Currently, a number of institutional destinations
are located along 3rd and 4th Streets in Downtown
Stillwater. These streets could be designed to
better facilitate pedestrian and bicycle connections
through narrowing of lanes, widening of sidewalks
or boulevards, creation of intersection curb
extensions, and incorporating street trees and
decorative lights that complement the surrounding
civic uses. 3rd Street is planned to become a
designated bike route.
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan 6-31
2nd Street Residential and Service Corridor
2nd Street is envisioned to serve as a residential
and service corridor, supporting the commercial
uses along Main Street. Streetscape improvements
along 2nd Street should enhance the residential
and service uses with pedestrian facilities, such as
widened sidewalks, intersection curb extensions,
improved crossings, and incorporating street trees
and pedestrian-scaled lighting.
Main Street Streetscape
Currently, the segment of Main Street between
Commercial Avenue and Nelson Street is the most
concentrated zone of commercial uses, buildings
Figure 6.14: Proposed and Existing Main Street at Mulberry Street
Figure 6.15: Precedent example of streetscape design for Main Street
and pedestrian and vehicular activity. The right-
of-way is constrained and packed full of competing
interests. Fortunately the street wall, shaped by
the continuous building frontage, creates a classic
enclosed “main street” scale and character. The
street wall begins to break down north of Myrtle
Street with the inclusion of more conventional
suburban site design and architecture.
With the completion of the St. Croix River crossing
bridge, the likelihood of decreased traffic counts
provides an opportunity to improve the geometry of
Main Street to a pedestrian-scaled corridor. Bump-
outs or curb extensions, protected parking bays or
6-32
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan
Figure 6.16: Precedent examples of Shared Use Streets
widened sidewalks, decorative paving, pedestrian-
scaled lighting, street trees, public artworks, and
the addition of benches and seating areas will
strengthen this corridor for pedestrian use and
promote street-level commercial opportunities.
Water Street Shared Use Street
Water Street present a unique streetscape condition
in Downtown Stillwater as it provides access to
commercial buildings, parking, service, deliveries,
along with vehicular, bicycle and pedestrian
circulation. Currently all of these uses are sharing
the space on an informal basis. Should Chestnut
street be converted to a pedestrian plaza, Water
Street will still cross the plaza, creating a raised
“shared intersection.” Formally designating Water
Street as a shared street formalizes current activities
and sets the expectation of how pedestrians and
vehicles will interact in the Chestnut/Water shared
intersection. Back of building façade improvements
and creation of outdoor spaces, similar to what has
currently been done between Nelson and Chestnut
and around the Chestnut intersection, should be
extended north to the Mrytle Street to improve
street activation, aesthetics, and user comfort.
East-West Link Streets: Linking Downtown to the
Riverfront
East-West Link Streets are within the core retail,
business and cultural heart of the city and serve
as primary commercial frontage, vehicular and
pedestrian linkages between 2nd or 3rd Street, and
the river. East-West Link Streets include Nelson,
Chestnut, Myrtle, Commercial, and Mulberry
Streets. These streets will receive streetscape
treatments which may include sidewalk bumpouts
with street trees where possible, pedestrian-scaled
ornamental light fixtures, decorative paving,
benches, parking lot buffers, planting areas, kiosks,
banners, public art, and a coordinated signing
system.
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan 6-33
The right-of-way for many of these streets is
narrow and presents some spatial challenges for
including streetscape treatments. The geometric
requirements for each street will need to be
evaluated to determine what is possible.
The following examples illustrate potential
streetscape treatments to Nelson, Myrtle, and
Commercial Streets, that will improve connections
to the waterfront by:
• Improving pedestrian comfort and safety
by providing sidewalk bumpouts to define
traffic lanes, shorten crosswalks and
provide space for trees and other landscape
materials.
• Provide space for directional signing,
Figure 6.17: Existing Myrtle Street
Figure 6.18: Potential Myrtle Street
ornamental lights, kiosks, public art and an
interpretive wayfinding system.
• Improve the view corridors by buffering
parking areas and defining the street edge.
These proposed improvements are not anticipated
to restrict the current traffic flow.
6-34
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan
Figure 6.19: Existing Commercial Street
Figure 6.20: Potential Commercial Street
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan 6-35
Chestnut Street and Plaza
As part of the St. Croix River Crossing project
the Minnesota Department of Transportation
(MnDOT) will be converting the existing historic
lift bridge into a vehicle free pedestrian and bicycle
connection. Chestnut Street east of Main Street is
envisioned to be converted into a pedestrian plaza
with slow vehicular crossings at Water Street.
(Figures 6.23 and 6.24)
Streetscape amenities at this plaza may include
interpretive and directional signage for wayfinding
at the pedestrian scale, raised intersections at Water
Street, decorative paving along the plaza, bollards
located at Main Street and vehicular crossings,
pedestiran-scaled lighting, benches, water features,
outdoor dining, space for programing, decorative
planters and street trees. Building facades facing
the pedestrian plaza should provide a friendly
backdrop for the plaza, and service areas for
these buildings should be located away from the
pedestrian plaza.
The City may want to consider prototyping the
Chestnut Plaza. Prototyping is essentially mocking
up the intended design with less expensive materials
as a way to test the concept. It allows the City and
residents to more fully understand how the plaza
will operate and to make adjustments to the design
and planned operations prior to construction.
Commercial Street and Plaza
Commercial Street is the primary link between
the public parking ramp at 2nd Street and the
riverfront. Currently, a public facility, including
restrooms, water fountains, bike racks, pedestrian-
scaled lighting fronts a pedestrian way link between
Main Street to Water Street and to Lowell Park.
A few properties on the block bounded by 2nd
Street, Commercial Street, Main Street and
Mulberry Street have been identified as potential
redevelopment sites. As these sites change in the
future, it will be important to maintain and enhance
Figure 6.21: Existing Nelson Street
Figure 6.22: Potential Nelson Street
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Chapter 6 : Downtown Stillwater Framework Plan
Figure 6.23: Conceptual Design: Chestnut Street Pedestrian Plaza
Conceptual Design: Chestnut Street Pedestrian Plaza Conceptual Design: Chestnut Street Pedestrian Plaza
(with designated bike lane alternative)
Directory
sign
Directory
sign
At-grade
Planter
At-grade
Planter
Designated
bike path
(closed
during select
programmed
functions)
Kid play
sculpture
Kid play
sculpture
Interactive
fountain
Moveable
seating
Moveable
seating
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Chapter 6 : Downtown Stillwater Framework Plan 6-37
Figure 6.24: Potential Chestnut Plaza
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Chapter 6 : Downtown Stillwater Framework Plan 6-39
Figure 6.25: Precedent Example of future crossing at Chestnut Street Plaza and Water Street
the pedestrian connection from the public parking
ramp to the riverfront. Streetscape treatments for
Commercial Street may include:
• Curb extensions and street trees where
possible
• Highlighted crosswalks
• Pedestrian scaled ornamental light fixtures,
• Decorative paving
• Benches
• Wayfinding elements
Activated Alley Improvements
Union Alley is located between Main Street and
2nd Street between Myrtle Street to Nelson Alley.
Nelson Alley is accessed from Main Street or 2nd
Street. These alleys provide service functions for
the businesses along Main Street, as well as provide
secondary frontage for a few businesses. Vehicles
are limited to northbound one-way traffic along
Union Alley between Olive and Myrtle Streets.
Nelson Alley allows two-way traffic, but limits
parking to the north side of the street.
To improve the pedestrian experience and to
provide further opportunities for businesses to
utilize the alleyways for customer access, a number
of improvements are recommended:
• Screen dumpsters with landscaping or
screening
• Consolidate trash locations and pick-up
schedules
• Provide pedestrian-scaled lighting along the
alleyway
• Decorative Paving
Secondary Activity Streets: Linking Neighborhoods
to Downtown
This category includes all other local streets beyond
the primary activity streets within a 10 minute
walk of Downtown. These streets serve the fringe
of Downtown and provide linkages between the
neighborhoods, parking lots, and the commercial
core. Treatment of these streets will have to be
analyzed on a street by street basis and may
include narrowing lanes, widening sidewalks and
boulevards, storm water infiltration, incorporating
street trees and decorative lights, as well as,
highlighting crosswalks, and accommodating
bicycles.
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PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan
Goals and Policies
Downtown goals, objectives, and policies have
been broken into the following categories
• Land use and Downtown urban design
• Transportation
• Parks, trails and riverfront
• Local economy and tourism
• Historic preservation and sustainability
Land Use and Downtown Urban Design
Downtown Stillwater has a unique combination
of historic architecture, a traditional commercial
district and authentic Victorian homes nestled
within a stunning river valley, which combine to
create a compelling tourist destination and source
of pride for the city and the state. The intent of
the Downtown Plan is to preserve and enhance
the components of land use, urban design and
overall character that define Stillwater so that “the
Birthplace of Minnesota,” continues to be a special
place to live, to work, and to visit.
Goals
Goal 1: Develop a land use plan that fosters
economic growth and evolution by reinforcing
the “rivertown” image of Downtown Stillwater
as a premier national riverfront destination that
attracts and welcomes both residents and visitors.
Sensitively develop prime Downtown property
using a compact mixture of commercial, office,
residential, recreational, and institutional uses,
while responding to varying market conditions.
Goal 2: Encourage a viable and compatible mix of
community and visitor-serving activities that builds
on the assets of Downtown as a desirable place to
live, work, shop, recreate and visit consistent with
the capacity of public services and facilities and
the natural resources. Promote a diverse range of
uses, a welcoming and engaging atmosphere, and
unique activities and events oriented to a range of
ages and cultures.
Objectives
• Keep Downtown Stillwater beautiful.
Present a cohesive, welcoming streetscape
with well-maintained storefronts and
sidewalks in all seasons.
• New development should complement
Downtown Stillwater’s historic character,
existing building massing, scale, and
materiality.
• Encourage architecture and urban design
which recalls late 19th Century commercial
design, is refined and subdued, introduces
more color consistent with the Victorian Era,
and helps create an environment which is
pleasing and interesting to pedestrians.
• Reinforce pedestrian connections with a
hierarchy of streetscape treatments. Focus
streetscape treatments within a 10 minute
walk distance of core Downtown and
adjacent neighborhoods. to provide safe,
comfortable and accessible paths for day
and night uses, as well as for all seasons.
Policies
Policy 1: Maximize the waterfront as a community
and regional amenity.
Policy 2: Preserve and reinforce views to natural
features, landmarks, steeples, and other significant
elements.
Policy 3: Continue to refine and administer design
guidelines so that the integrity of the existing
and surrounding buildings is maintained and
new development is of a height, size, and design
compatible with the best examples of existing
development. The guidelines should also encourage
rehabilitation of existing buildings to the original
style or design.
Policy 4: Reduce the visual impact of overhead
telephone and electricity lines.
Policy 5: Preserve the limestone retaining walls
located throughout Downtown. Require new
retaining walls fronting public areas to be limestone
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan 6-41
Figure 6.26: Downtown Massing Potential
or a material consistent with historical retaining
walls and similar to existing stone used throughout
Downtown.
Policy 6: Continue to reinforce the unique character
of the Downtown district through appropriate land
uses, architecture, and site design.
Land Use and Zoning
The 2005 Zoning Ordinance designates the
majority of Downtown as the Central Business
District (CBD) Zoning District and the Institutional
area along 4th street was designated as Public
Administration. The CBD Zone is flexible enough
to allow for a compact mixture of uses to foster a
viable Downtown. The city also adopted height
limitations for the Downtown area to preserve
views to the river corridor (See Figures 6.26 & 6.27.)
The Land Use Chapter of the 2030 Comprehensive
Plan designates the Downtown area as “Mixed
Use”, which more accurately reflects the mix of
uses Downtown and is more flexible than the CBD
Zoning designation
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PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan
Figure 6.27: Downtown Height Districts
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan 6-43
Downtown Districts
The Downtown Plan defines six Downtown
districts, each possessing its own unique character
created by the mix of land uses, architecture and
open spaces (See Figure 6.28.)
Downtown Mixed Residential District
The Downtown Mixed Residential District helps
shape the gateway into the core Downtown from
the north. The district has numerous buildings on
the national register of historic places, including
the Washington County History Museum and the
Staples Saw Mill. The district includes most of
the multi-family redevelopment that has occurred
within the Downtown as well as office space.
North Hill Residential District
The North Hill Residential District is characterized
by the historic single family homes and stone walls
that line the residential streets. Mixed into the
fabric of the historic homes are some larger multi-
family residential buildings and multi-family
conversions. The historic Lowell Inn is located in
the district along Myrtle Street. From this district
long prominent views exist of the core Downtown
area and the St. Croix River Valley.
Public/Institutional District
This district is home to many of the civic buildings
in the community including city hall, the Stillwater
public library, the fire/police station, the post office,
the city water works and other public offices. Some
existing single family housing, public parking lots
and two significant church facilities also give form
to the district.
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PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan
Figure 6.28: Downtown Districts
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan 6-45
The Downtown Plan recommends preserving
and reinforcing this evolving institutional district
through complementary land uses, architecture
and streetscape treatments.
Trinity Lutheran Church owns several parcels at
the intersection of Myrtle and 4th Street. Figure
6.29 illustrates how future expansion of the church
facilities or other infill uses could reinforce the
institutional district through complementary
architecture and site planning. The buildings
should be placed close to the street to both reinforce
the view corridor along Myrtle Street as well as,
shape the 4th Street corridor. Parking is provided
behind and or to the side of the buildings.
Figure 6.29: Institutional District
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PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan
Historic Commercial District
The historic commercial district is the heart of
Downtown Stillwater and is the location of most
small retail and service businesses. This district
is also the location of many of the notable historic
commercial structures and entertainment related
businesses.
The proposed Chestnut Street Plaza will serves as
an important east-west connection in this district, as
it will provide a direct link to the Riverfront District
and Historic Lift Bridge. With the opening of the
new St. Croix Crossing, Highway 95 will be able
to function once again as a traditional Main Street.
South Hill Residential/ Institutional District
The South Hill Residential district is located between
W Myrtle Street and E Pine Street adjacent to the
Historic Commercial District. Included within the
district are retail businesses, single and multifamily
housing, Cub Foods Corporate Headquarters,
Teddy Bear Park and numerous public parking
lots. From this district long prominent views of the
core Downtown area and the St. Croix River Valley
can be found.
Riverfront District
The riverfront district contains historic Lowell
Park, the most prominent public green space in the
City of Stillwater. Most of the western edge of the
district is defined by public and private parking lots
that serve the riverfront and Downtown businesses.
Also located in the district are notable structures
that recall the history of logging and saw mills
along the river, including the Freight House, Water
Street Inn and the Historic Lift Bridge. In addition,
the Stillwater Depot and the Stillwater Marina
give definition to the northern end of this district.
Today, this district is also host to the crossroads of
local and regional trails.
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan 6-47
Downtown Land Use and Urban Design
Implementation
To implement the Land Use and Downtown Urban
Design section of the Downtown Plan, the city will
consider:
• Build on Stillwater’s unique aspects by
creating a marketing strategy based on the
historic and Rivertown characteristics of the
Downtown.
• Enhance aesthetics of corridors leading into
the Downtown along Myrtle, Commercial,
Chestnut, 2nd Street, 3rd Street and Main
streets. This could include adoption of
guidelines or ordinances that would shape
the edge of the corridors with buildings,
landscaping and appropriate signage.
• Create architectural focal points at the
river, such as arbors, sculpture, or gazebos
at terminal points of Mulberry, Myrtle,
Chestnut, and Nelson Streets.
• Incorporate an interpretive system to
celebrate the historical and natural resources
of the Downtown including the river, the
bluffs, east bank of the river, the ecology,
and geologic history of the river corridor.
Connect this interpretive system to the trail
system.
• Use landscaping to blend the Downtown
into the natural attraction of the St. Croix
River Valley, to improve the enjoyment of
the Riverfront, and to soften features such
as parking lots and service areas which may
be inconsistent with the desired Downtown
image.
Transportation
The quality, function and scale of the streets have a
great deal to do with shaping the small city character
of Downtown Stillwater. The Transportation
Chapter of the 2040 Comprehensive Plan provides
additional guidance on an integrated system of
roads, bikeways, transit lines, and pedestrian paths
throughout the city including Downtown.
Goals
Goal 1: While pedestrians, bicycles, transit, and
cars are desired and accommodated in Downtown,
it is an environment where residents and visitors
primarily walk to reach Downtown destinations.
Goal 2: Develop and locate new roads sensitive
to historic structures and sites, as well as natural
features.
Goal 3: Travel to, from, and in the midst of
Downtown is well-articulated and convenient for
pedestrians, bicycles and vehicles.
Goal 4: Orientation to Downtown destinations,
businesses, and parking is easy to understand.
Goal 5: Access to Downtown is safe and universal
in all seasons.
Goal 6: Present a cohesive, welcoming streetscape
with well-maintained storefronts and sidewalks in
all seasons.
Objectives
• Reduce through traffic impact in residential
areas by means of road design and traffic
management.
• Enhance the function, safety and appearance
of Stillwater’s streets, highways and major
entryways into the city.
• Utilize pervious and other green
technologies for stormwater treatment
associated with parking lot and street
improvements where possible and
economically feasible.
• Use topography and other site planning
methods to minimize the visual presence of
parking lots.
• Maintain existing public stairways
throughout the community, particularly in
the Downtown.
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PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan
• Explore alternative transportation and
transit opportunities for Downtown
Stillwater.
• Work with Washington County and the state
in developing park and ride lots, trailway
systems and other programs to reduce auto
use.
• Increase transit ridership and support
transit service for transit dependent
residents, particularly senior citizens,
provide adequate transit facilities (bus stops,
transfer station) to support transit use, and
cooperate with the regional transit authority
and Washington County to provide
conveniently located park and ride facilities
at major transit stops.
Policies
Policy 1: Ensure that planned transportation
infrastructure, capacity and access will
accommodate proposed land use and development.
Policy 2: lmprove traffic and parking in and around
commercial areas.
Policy 3: Encourage transit use through subdivision
design, land use planning and education.
Policy 4: Work to implement the city’s Trails
master Plan to enhance non-motorized movement
to and throughout Downtown.
Policy 5: Implement pedestrian enhancements
along Main Street to improve access, safety and
comfort of pedestrians.
Policy 6: Continue discussions with MnDOT
to define space allocation for the Main Street
right of way when the roadway is scheduled for
reconstruction.
Traffic Impact Analysis
Closing the lift bridge to vehicular traffic is
expected to greatly reduce the amount of cut-
through traffic in Downtown; this traffic currently
causes congestion and queueing issues, particularly
during weekday afternoon peak periods and
during Saturday events. A traffic impact analysis
was conducted to identify potential transportation
system modifications (e.g. reduction in turn lanes,
changes in traffic control, roadway closures, and
improvements for pedestrians and bicyclists) that
can be considered as part of the Downtown Plan.
Existing and historical traffic volume data was
obtained for this study. Vehicular and pedestrian
counts were collected by SRF on Thursday, July 14,
2016 during the p.m. peak period from 4:00 p.m.
to 6:00 p.m. and on Saturday, July 16, 2016 from
12:00 p.m. to 6:00 p.m. during the Lumberjack
Days weekend. The weekday p.m. peak period
represented higher vehicular traffic while
Lumberjack Days represented a weekend event
that was expected to generate high pedestrian
volumes. This information was supplemented and
reconciled with prior vehicular turning count data
to reflect existing conditions.
Figures 6.30 and 6.31 depict existing traffic
congestion at intersections and along street
segments in Downtown during the p.m. peak
period and during Saturday afternoon. Figure
6.32 depicts existing pedestrian volumes crossing
various intersections in Downtown during
Saturday afternoon during Lumberjack Days.
Year 2017 Volume Forecasts
The closing of the Stillwater lift bridge will shift
traffic volumes using Hwy 95 between Wisconsin
Hwy 64 and Minnesota Hwy 36 to the new St.
Croix crossing bridge from Downtown Stillwater.
Approximately 50 percent of the traffic currently
using the lift bridge is destined for Hwy 36 as
determined from the before, during, and after data
from a past lift bridge closure. This traffic using
Hwy 36 will no longer be in Downtown Stillwater
when the lift bridge no longer serves vehicular
traffic. 15 percent of traffic crossing the lift bridge
to access Downtown Stillwater is expected to
return to Downtown by using Hwy 95 and Osgood
Avenue/3rd Street after the new bridge is opened.
Illustrated in Figure 6.33 are relative volumes
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan 6-49
shifts of existing bridge traffic between existing
and opening day conditions. The remaining traffic,
traffic destined to the north or west of Downtown
or to Hwy 96, will still use Hwy 95 and Myrtle Street
as a main connection through Downtown, but other
regional routes exist (i.e. Manning Avenue) that will
decrease the use of Hwy 95 through Downtown
Stillwater as a regional connection.
Findings and Recommendations
Based on the traffic impacts analysis, the following
recommendations are offered for consideration:
• All study intersections are expected to
operate acceptably with traffic signals
at Myrtle Street, Chestnut Street, and
Nelson Street and with the removal of the
southbound left-turn, westbound left-turn,
and northbound right-turn lanes at Hwy 95
and Chestnut Street. The existing turn lanes
on Hwy 95 at Myrtle Street should remain
as Myrtle Street is the main connection to
western Stillwater.
• The existing restriction to the northbound
left-turn movement at Hwy 95 and Chestnut
Street can be eliminated as left-turning
traffic is expected to be minimal. While the
recommendation is to allow the northbound
left-turn at Chestnut Street, this restriction
Figure 6.30: Existing PM Traffic Volume
High congestion
Existing PM Trac Volume
Medium congestion
Low congestion
500 100 200 ft
Main St (T
H
9
5
)
2nd st
3rd St
Chestnut StMyrtle
StCommercia
l
StMulberry
StOl
ive
StNelson
St
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PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan
can be reestablished if the northbound left-
turning traffic consistently impedes traffic
flow along Hwy 95. It should be noted even
with a restricted northbound left-turn the
remaining study recommendations are
valid.
• Extra width is available to add on-street
parking and/or expand sidewalk width with
the elimination of three turn lanes at the
Hwy 95 and Chestnut Street.
• The current signalized intersections on
Hwy 95 would operate unacceptably if they
were converted to all-way stop controlled
intersections due to the high pedestrian
activity. It is recommended that none of
the signals are converted to all-way stop
intersections singularly in order to provide
corridor continuity along Hwy 95.
• The closure of vehicular traffic or conversion
to a shared space or pedestrian plaza on
Chestnut Street from Hwy 95 to the lift
bridge approach could be considered
based on the high pedestrian and bicycle
activity. It is recommended that Chestnut
Street would still be accessible for MnDOT
maintenance vehicles and emergency
vehicles.
Figure 6.31: Existing Saturday Traffic Volume
High congestion
Existing Saturday Trac Volume
Medium congestion
Low congestion
500 100 200 ft
Main St (T
H
9
5
)
2nd st
3rd St
Chestnut StMyrtle
StCommercia
l
StMulberry
StOl
ive
StNelson
St
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan 6-51
Pedestrian Volumes
Existing PM Hour Crossings Saturday Peak Hour CrossingsFigure 6.32: Existing Pedestrian Volumes
Existing PM Hour Crossings
Existing Distribution
Saturday Peak Hour Crossings
Year 2017 Volume Shift
Pedestrian Volumes
Existing PM Hour Crossings Saturday Peak Hour Crossings
Bill Turnblad November 9, 2016
City of Stillwater Page 5
Figure 3 – Volume Distribution Shift from Bridge Closure
Existing Distribution Year 2017 Volume Shift
Note: Volume distribution changes of bridge volume outside of downtown are assumed consistent with St. Criox River Crossing Project 2004 Supplemental
Environmental Impact Statement directional distributions.
Year 2040 Volume Forecasts
Year 2040 daily volume forecasts were developed based on previous average annual growth
rates (AAGR) identified in the St. Criox River Crossing Project 2004 Supplemental Environmental Impact
Statement applied to the year 2017 daily volume forecasts. Using the year 2017 daily volumes,
year 2040 daily volumes, and the year 2017 peak hour forecasts, year 2040 peak hour forecasts were
developed (see Figure 5).
Future Conditions
With the decrease in vehicular traffic after the lift bridge closure to vehicular traffic, multimodal
improvements are being considered in downtown along Hwy 95, Chestnut Street, and a number of
other locations. As previously noted, this analysis considered the potential for a reduction in turn
lanes, changes in traffic control, roadway closures, and improvements for pedestrians and bicyclists.
The purpose of evaluating these changes is to allow for the repurposing of the downtown
transportation network. The analysis also looked at other opportunities including:
Changes to Chestnut Street between Hwy 95 and the lift bridge approach.
Changes to Sam Bloomer Way.
Changes to pedestrian areas and crossings along Hwy 95.
Changes to bicycle connections.
-5% +5% -30%
+35%
-100%
-15%
-10%
-5%
-5% -5% -10%
+100%
0%
+10% +20%
Figure 6.33: Volume Distribution Shift from Bridge Closure 755676
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PLAN OF STILLWATER
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• Sam Bloomer Way could be closed at the
existing parking lot accesses on Nelson
Street and Myrtle Street. This roadway has
low vehicular volumes interacting with
high pedestrian activity but is not a needed
connection after the lift bridge closure to
vehicular traffic.
• Pedestrians experience crossing delays at
Chestnut Street and Myrtle Street because
of longer cycle lengths and protected
turning movements. With the elimination
of the turn lanes at Chestnut Street, several
other pedestrian improvements could be
considered:
* Leading pedestrian intervals at
signalized intersections. Leading
pedestrian intervals are changes to traffic
signals that allow pedestrians to enter the
crosswalk and start their street crossing
before cars are allowed to enter the
intersection. This improves pedestrian
circulation and enhances pedestrian
visibility at intersections
* Shorter cycle lengths
* Sidewalk bump outs/curb extensions
* Increased pedestrian crosswalk width
and stop bar placement
Figure 6.34: Removal of Existing Turn Lanes 500100200 ftMain St (TH 95)2nd st3rd StChestnut St
Myrtle St
Commercial St
Mulberry St
Olive St
Nelson St
Myrtle St left-turn lanes
recommended to remain
All Chestnut lanes are
recommended for removal
after lift bridge closure
Pseudo right-turn areas that
could be converted to curb
extentions
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan 6-53
Parks, Trails and Riverfront
The St. Croix River and river valley are central
to Stillwater’s sense of place and well-being. A
primary goal is to reinforce the riverfront as an
intrinsic part of, and economic asset to, Downtown
by:
• Providing a space that allows visitors
and residents to physically, visually and
spiritually experience the river,
• Hosting community art, as well as year
round cultural and recreational events, and
• Functioning as a recreation gateway to the
St. Croix River Valley.
Along with the riverfront, the parks, pedestrian
promenades, trails, stairways, and streetscapes
create a network of connections and amenities
which will attract visitors, residents and businesses
while balancing pedestrian, bicycle, as well as
recreational and private vehicle circulation needs.
A key initiative is the development of Chestnut
Plaza as described in the urban design section of
this chapter. The City will need to consult with
the Minnesota Historic Society/State Historic
Preservation Office (SHPO) about the possibility
or necessity to update the existing St. Croix River
Crossing Project Memorandum of Agreement to
reflect the City’s desire to convert Chestnut Street
(from Main Street to the river) into a pedestrian
plaza.
To better promote walking, and tourist
transportation within Lowell Park, Sam Bloomer
Way is proposed to be transformed from a roadway
to a riverfront promenade, south of Myrtle. It will
also accommodate vehicles that transport tourists,
such a horse drawn carriages, peddle pubs and
small electric trolleys.
Refreshing the south end of Lowell Park was
another key initiative brought forward by the
community. There is a desire to provide additional
seating and landscape plantings in the park and to
enhance the aesthetics of Lowell Park in a manner
that is sensitive to its historic designation.
Stillwater is the natural gateway from the Twin
Cities metro area to the St. Croix National Scenic
Riverway and to the many parks, trails, and the
cultural, historical, recreation and conservation
areas in the river valley. The City can anticipate a
significant increase in the number of people entering
Stillwater not just to enjoy the City’s amenities, but
also as a place to learn more about these many St.
Croix Valley opportunities. To assist these visitors,
Stillwater may want to consider options to provide
information about these opportunities.
Potential partners in this endeavour could be
the National Park Service, the St. Croix River
Association, the Minnesota and Wisconsin DNRs,
Washington County, state and local historical
societies, and arts organizations.
Goal
Reinforce Downtown as a premier national
riverfront destination that attracts and welcomes
both residents and visitors.
Objectives
• Preserve, enhance and restore the riverfront
based on its natural setting, recreational
uses and historic integrity for the enjoyment
of residents and visitors.
• Design parking to serve both the Downtown
and Lowell Park. Screen views of parking
from within Lowell Park and improve the
visual impact of parking in the Downtown
area.
• Provide a strong linkage between
Downtown Stillwater from the river.
• Provide a variety of settings and locations
along the riverfront to accommodate
a variety of uses ranging from quiet
contemplation areas to community festivals.
Policies
Policy 1: Work to complete network connections
for bikeways and pedestrian promenades.
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PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan
Policy 2: Trails, walkways and staircases connecting
neighborhoods into Downtown should be well
identified with signage.
Policy 3: Explore the feasibility of developing
chestnut plaza as a key multi-functional open space
that provides a significant connection between
Main Street and the riverfront park.
Policy 4: The city should work together with other
agencies to develop a trail system to connect Aiple
Park to Downtown Stillwater.
Policy 5: Investigate the feasibility of restoring the
historic landscape features and plantings of Lowell
Park.
Historic Preservation and Sustainability
Downtown’s historic resources are cherished and
are integral to Stillwater’s sense of place. On-going
efforts to support historic preservation are crucial,
yet Downtown must also continue to evolve to meet
current community needs. The on-going evolution
of Downtown is seen as actively “making history.”
Future development and Downtown activities are
supportive of the river’s natural beauty and respect
the limited resource of the Downtown’s built and
natural environment.
The City may want to investigate the feasibility of
updating the National Register of Historic Places
nomination for the Stillwater Commercial Historic
District. There appears to be an opportunity to
extend the period of significance, currently ending
in 1940, which would afford several additional
properties ‘contributing’ status and allow them to
take advantage of historic tax credits for building
rehabilitation (such as the Cosmopolitan State
Bank at 101 South Main, constructed in 1967 and
a significant local example of Late/Expressionist
Modernism). District boundaries could likewise
be revisited to be more in keeping with the current
National Register policies and guidance, also
including additional ‘contributing’ resources, such
as properties built since 1940 and up to the end date
of the extended period of significance, and historic
residential buildings interspersed among the
commercial properties in the district. Furthermore,
the nomination could also explore the district’s
potential significance in the areas of Entertainment/
Recreation and Landscape Architecture, by
expanding the historic significance context for
Lowell Park and the planned transformation of the
riverfront from a lumber and milling center to a
recreational amenity beginning with the 1913 city
plan by Morrell and Nichols.
Goal
Preserve Downtown’s historic resources while
facilitating sensitive adaptive reuse of historic
buildings and landscapes and redevelopment that
is complementary to its historic character.
Objective
• Preserve, maintain, and build upon the
historic resources of Downtown.
• Interpret the historic significance of
Downtown and make it available for people
to learn about and enjoy.
• Allow Downtown to continually evolve
in a manner that is sensitive to its historic
resources.
Policies
Policy 1: Explore the feasibility of updating the
National Register of Historic Places nomination for
the Stillwater Commercial Historic District
Policy 2: Work with partners to develop approaches
for interpreting, sharing, and educating residents
and visitors about Downtown’s historic resources.
Policy 3: Encourage reuse of vacant upper floors
in the historic district. Develop code-friendly
solutions to common challenges (light/ventilation
requirements, egress, vertical access, fire safety,
etc.) and offer additional financial incentives, if
necessary, to spur redevelopment.
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Chapter 6 : Downtown Stillwater Framework Plan 6-55
Local Economy and Tourism
Downtown Stillwater’s economy has traditionally
capitalized on its historic charm, and beautiful
natural setting. Downtown is a destination location
for residents of the Twin Cities Metropolitan Area
and beyond. During the summer months and
when fall foliage colors peak it is not unusual to
have 20,000 visitors a day in the city. The riverfront
is a focal point for many of these tourist activities.
By maintaining the city’s quality of place, not only
does it receive additional economic benefit from
tourism, but it attracts residents and businesses
that treasure the unique marriage of small town
living with high quality of life.
This Local Economy and Tourism section of the
Downtown Plan will:
• Outline the city’s goals and policies with
respect to economic development and
tourism;
• Summarize a market potential analysis
for Downtown that was completed for the
Downtown Plan update; and
• Provide implementation recommendations.
Local Economy
The opening of the new St. Croix Crossing will
significantly reduce traffic congestion in Downtown,
which provides an important opportunity to reclaim
Main Street as a community gathering space and
amenity. Reduced traffic congestion is also seen as
opportunity to attract Stillwater residents back to
patronize, recreate, or live in their Downtown. The
reduction of traffic volumes due to new St. Croix
River Crossings also pose a challenge to ensure
that Downtown is being appropriately marketed to
attract patrons to Downtown businesses.
Goals
Goal 1: Increase the tax base and provide
opportunities for economic growth for Stillwater
and Stillwater area residents.
Goal 2: Promote and maintain the Downtown as a
central focus for community economic, recreation,
and cultural activity.
Goal 3: Provide new locations for Downtown
housing to support Downtown retail and
entertainment venues.
Objectives
Support a Downtown where city residents and
workers can live, work, shop and recreate in vibrant
riverfront atmosphere year round.
Policies
Policy 1: Work with local and regional economic
development interests to promote local economic
development.
Policy 2: Support Downtown as a regional
destination for arts and cultural activities.
Policy 3: Encourage mixed use development that
incorporates housing and structured parking
within Downtown.
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Tourism
Stillwater’s preserved historical sites of the 1800’s
lumbering era have made the city an attractive
destination for tourists. Much of the Downtown
area is filled with businesses targeted to this tourist
trade including historic hotels, beds and breakfast,
riverboats, specialty shops, and a variety of
restaurants. Stillwater is also host to many special
events that annually draw thousands of tourists to
the community including, Lumberjack Days, The
Rivertown Art Festival and the Fall Colors Fine Art
& Music Festival. In early 2017, the City hosted
Hockey Day Minnesota as a way to expand event
programming into the winter months.
Goals
Goal 1: Promote tourism in a manner that
celebrates, yet protects, Stillwater’s unique natural
resources and historic and architectural character.
Objectives
Maintain Stillwater’s historic, cultural and natural
resources, community uniqueness.
The historic significance of Downtown is interpreted
and made available for people to learn about and
enjoy.
Support Downtown as a premier national riverfront
destination and recreation gateway to the St. Croix
River Valley that attracts and welcomes visitors
without overwhelming Downtown resources.
Support public improvements and maintenance
that enhances the attractiveness of Downtown.
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Chapter 6 : Downtown Stillwater Framework Plan 6-57
Policies
Policy 1: Attract visitors, shoppers, and outdoor
recreation enthusiasts to the community
Policy 2: Support year around activities that enliven
the Downtown public and cultural life
Policy 3: Promote activities which lengthen the
time visitors spend in Stillwater
Policy 4: Facilitate sensitive adaptive reuse of historic
buildings and landscapes and redevelopment that
is complementary to Stillwater’s historic character
Policy 5: Maintain public facilities so that the
Downtown is an attractive place to visit
Policy 6: Work with the Stillwater Area Chamber of
Commerce and Convention and Visitors Bureau in
promoting Downtown activities and improvements
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Market Attributes of Downtown Stillwater
Maxfield Research conducted a market feasibility
study evaluating the potential demand for
additional retail space in Downtown Stillwater. The
market analysis includes a review of population,
household and employment growth trends in the
Primary Retail Draw Area along with analysis of
consumer demographics, household expenditures,
retail gaps and overall market conditions.
The market analysis focuses on the amount of
development supportable to 2030.
Demographic Characteristics and Growth Trends
The study starts out with determining an
appropriate draw area from which retail space in
Downtown would likely attract buyers/shoppers/
tenants. Key demographic data in the Market Area
is then analyzed, as it relates to the demand for
retail development.
Site Characteristics
Stillwater is known as the birthplace of Minnesota
because the first territorial conference was located
in Downtown at the corner of Chestnut and Myrtle
Streets in the mid-1800s. At that time, Stillwater
was the largest community in Minnesota.
Stillwater’s population was estimated at 19,754
people (2015‐Metropolitan Council). Most recently,
Stillwater grew by 8,283 people between 1990 and
2000, an increase of 118% during the period. Some
of that growth was due to annexation of land area
from Stillwater Township and the acquisition of
population and households through the additional
land area. The 2000s were a period of slower growth
for the City, with 2,904 additional people resulting
in 18.9% growth. In comparison, the Twin Cities
Metro Area household base expanded by 16.6%
between 1990 and 2000 which was followed by 9.4%
growth between 2000 and 2010, but Stillwater’s
growth has been significantly higher than that of
the Twin Cities Metro Area.
The Downtown is a traditional historic Downtown
with many buildings dating back to the earliest days
of the City. Its scenic location along the St. Croix
River coupled with recreational opportunities,
dramatic water views and specialty shopping
district regularly attracts customers and visitors
from all over the US.
Access and Visibility
The construction of the new St. Croix River
Crossing will provide another major transportation
route for travelers from upper St. Croix County and
further north to access the Twin Cities Metro Area
via Highway 36 on the Minnesota side. Previously,
this traffic has funneled through Downtown
Stillwater, creating a substantial amount of traffic
congestion and hampering the ability of the
Downtown to accommodate shopping traffic. Once
the new Bridge opens in fall 2017, it is expected that
through‐traffic counts will decrease substantially
allowing for better access to local businesses.
Currently, traffic through Downtown Stillwater
offers an opportunity to become aware of what
Downtown has to offer, despite the substantial
congestion. There is a concern that once the new
Bridge is open that travelers may bypass Stillwater
and just continue on to other locations in the Twin
Cities Metro Area rather than patronize businesses
in Downtown. Some visibility will be reduced and
it will be important to increase marketing at the
outset to encourage people to exit off Highway 36
to the Downtown.
Downtown Strengths and Weaknesses
The Downtown has several strengths that make
it an inviting location for visitors and shoppers
including:
• Historic buildings with architecture that
evokes a traditional Downtown;
• Compact walkable district with most goods
and services along Main Street;
• Grid street pattern that provides convenient
access for vehicle traffic;
• Close proximity to the River offers dramatic
and scenic views;
• Diverse mix of businesses, many of which
were able to weather the Recession;
• Highly successful in attracting visitors to the
Downtown;
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Chapter 6 : Downtown Stillwater Framework Plan 6-59
The Downtown’s greatest challenges are:
• A high level of traffic congestion, a portion
of which will be relieved with the new
Bridge crossing;
• Parking often fills with visitor and event
patrons, less with Downtown customer
(most often during the summer season);
local customers may often stay away from
the Downtown during the peak summer
months
• Downtown mix is focused most heavily on
specialty items and less on neighborhood
oriented goods and services, which may
encourage people to come Downtown more
frequently.
Demographic Overview
The Stillwater Primary Market Area (PMA) is
comprised of households that generally live in
close proximity to Downtown Stillwater and are
most likely to view the area as one of their primary
shopping districts. The PMA is an aggregation
of census tracts in eastern Washington County
in Minnesota and western St. Croix County in
Wisconsin and includes the Cities of Stillwater,
Oak Park Heights, Bayport, Stillwater Township,
Baytown Township, a portion of Lake Elmo in
Minnesota in addition to North Hudson Village,
Somerset Village, New Richmond and Somerset
Town and St. Joseph Town in Wisconsin.
As of 2010, the PMA contained 72,730 people
and 26,929 households. During the 2000s, the
Figure 6.35: Downtown Stillwater Primary Market Area (PMA)
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Change
US Census Estimate Forecast 2000‐2010 2010‐2021
2000 2010 2016 2021 2030 No. Pct. No. Pct.
Population
Market Area Total 61,877 72,730 76,277 79,987 87,565 10,853 17.5 7,578 10.4
Washington County 145,880 238,136 253,591 268,410 299,130 92,256 63.2 30,274 12.7
St. Croix County 63,155 84,345 86,858 98,434 111,470 21,190 33.6 14,089 16.7
7‐County Metro Area 2,642,056 2,849,567 3,036,589 3,155,469 3,388,950 207,511 7.9 305,902 10.7
Households
Market Area Total 22,047 26,929 28,355 29,841 33,414 4,882 22.1 2,912 10.8
Washington County 49,246 87,859 93,631 103,722 116,210 38,613 78.4 15,863 18.1
St. Croix County 23,410 31,799 34,767 37,933 41,420 8,389 26.4 6,134 19.3
7‐County Metro Area 1,021,456 1,117,749 1,188,436 1,270,463 1,378,470 96,293 9.4 152,714 13.7
Sources: U.S. Census; ESRI; MN; Wisconsin Dept. of Administration; Maxfield Research
Table 6.2: Population and Household Growth Trends
Stillwater Primary Market Area (2000 to 2030)
population increased 17.5% while the number of
households expanded by 22.1%. By 2021, the PMA
is projected to add another 7,578 people and 2,912
households. Population growth is anticipated to
be somewhat modest on the Minnesota side of the
River. Growth on the Wisconsin side could be more
robust as the improved transportation access from
the River Crossing encourages more residential
development in St. Joseph and Somerset Towns. By
2030, the PMA is projected to have 87,565 people
and 33,414 households.
An analysis of age distribution reveals the aging of
the PMA population as the baby boom generation
reaches its senior years. The 65 to 74 cohort
experienced the largest increase between 2010 and
2016, increasing by 1,953 people or (39.7%). Looking
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Chapter 6 : Downtown Stillwater Framework Plan 6-61
ahead, the 65 to 74 and the 75 and over age cohorts
are anticipated to experience the largest growth
between 2016 and 2021, increasing by 2,080 people
(30.3%) and 1,174 people (27.1%), respectively.
These gains will occur as the baby boom generation
ages and as potential residential activity focuses on
higher-density housing products in the community.
There is also anticipated to be an increase in the 25
Change
Age
Census Estimate Projection 2010‐2016 2016‐2021
2010 2016 2021 No. Pct. No. Pct.
PMA
Under 20 19,832 19,529 19,180 ‐303 ‐1.5 ‐349 ‐1.8
20 to 24 3,518 4,287 4,322 769 21.9 35 0.8
25 to 34 7,813 8,125 8,972 312 4.0 847 10.4
35 to 44 10,144 9,382 9,603 ‐762 ‐7.5 221 2.4
45 to 54 12,881 12,227 11,134 ‐654 ‐5.1 ‐1,093 ‐8.9
55 to 64 9,839 11,518 12,313 1,679 17.1 795 6.9
65 to 74 4,916 6,869 8,949 1,953 39.7 2,080 30.3
75+ 3,887 4,340 5,514 453 11.7 1,174 27.1
Total 72,830 76,277 79,987 3,447 4.7 3,710 4.9
Washington County
Under 20 68,825 69,009 69,929 184 0.3 920 1.3
20 to 24 11,820 14,021 13,416 2,201 18.6 ‐605 ‐4.3
25 to 34 28,864 31,100 33,150 2,236 7.7 2,050 6.6
35 to 44 34,243 33,757 37,777 ‐486 ‐1.4 4,020 11.9
45 to 54 40,412 38,533 35,573 ‐1,879 ‐4.6 ‐2,960 ‐7.7
55 to 64 28,988 34,621 37,183 5,633 19.4 2,562 7.4
65 to 74 14,440 20,231 25,866 5,791 40.1 5,635 27.9
75+ 10,544 12,319 15,516 1,775 16.8 3,197 26.0
Total 238,136 253,591 268,410 15,455 6.5 14,819 5.8
7‐County Metro Area
Under 20 774,287 786,474 799,025 12,187 1.6 12,551 1.6
20 to 24 190,135 209,816 198,104 19,681 10.4 ‐11,712 ‐5.6
25 to 34 420,311 436,000 450,970 15,689 3.7 14,970 3.4
35 to 44 391,324 401,156 436,283 9,832 2.5 35,127 8.8
45 to 54 440,753 420,262 391,570 ‐20,491 ‐4.6 ‐28,692 ‐6.8
55 to 64 326,007 388,188 402,985 62,181 19.1 14,797 3.8
65 to 74 163,425 231,386 287,542 67,961 41.6 56,156 24.3
75+ 143,325 163,302 188,990 19,977 13.9 25,688 15.7
Total 2,849,567 3,036,584 3,155,469 187,017 6.6 118,885 0.1
Sources: U.S. Census Bureau; ESRI; Maxfield Research
Table 6.3: Age Distribution
Stillwater Primary Market Area (2010 to 2021)
to 34 age cohort of 847 people (10.4%), which may
also signal additional demand for rental apartments
and entry-level homes.
The 2016 median income in the PMA ($79,858) is
18% higher than the Metro Area median income
($70,404). Therefore, the Market Area is relatively
affluent compared to the Metro Area, suggesting
that households have more resources to devote
toward retail services and goods.
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DEMOGRAPHIC ANALYSIS
MAXFIELD RESEARCH AND CONSULTING 20
The 35 to 44 age cohort declined by ‐7.5%% (‐762 people) between 2010 and 2016 while
the under 20, 35 to 44 and 45 to 54 age groups also declined, losing ‐1.5%, ‐7.5% and ‐5.1%
of their populations, respectively.
Looking ahead, the 65 to 74 and the 25 to 34 age cohorts are anticipated to experience the
largest growth between 2016 and 2021, increasing by 3,254 people (29.0%) and 845
(10.4%), respectively. These gains will occur as the baby boom generation ages and as in‐
creased residential development activity creates housing opportunities for young families.
In the PMA and throughout the Metro Area, minimal growth is expected in the 35 to 44 and
45 to 54 age groups as the “baby bust” generation (those born after the baby boom ended,
from the mid 1960s through the late 1970s) ages into these cohorts.
Anticipated population growth in the younger age cohorts as well as the age 65+ cohort will
support existing retail goods and services in Downtown Stillwater and create additional op‐
portunities.
1,104
1,596
4,286
3,534
-4,839
8,195
11,426
4,972
30,274
-652
804
1,159
-541
-1,747
2,474
4,033
1,627
7,157
‐10,000 ‐5,000 0 5,000 10,000 15,000 20,000 25,000 30,000 35,000
Under 20
20 to 24
25 to 34
35 to 44
45 to 54
55 to 64
65 to 74
75+
Total
Number of PeopleAgePopulation Growth 2010‐2021
PTA
Washington County
Figure 6.36: Population Growth
Stillwater Primary Market Area (2010 to 2021)
Employment
Between 2010 and 2021, nearly 4,000 jobs are forecast
to be added in the PMA. Employment is expected to
increase by 11.5% in the PMA, compared to 26% in
Washington County, 36% in St. Croix County and
almost 18% in the Twin Cities Metro Area. Between
2000 and 2010, the PMA gained only 545 jobs (1.6%)
likely due to the recession. Industries with the most
significant gains were Manufacturing, Education
and Construction.
The unemployment rate in the PMA is at 3.1%,
compared to the Twin Cities Metro Area at 2.7%.
Companies are experiencing some labor shortages,
especially for skilled workers.
Commuting Patterns
The Primary Market Area has more workers
commuting to jobs outside of the Primary Trade
Area than are coming into the PMA for work. Data
reveals that 55,000 people leave the area for work
while 30,340 come into the area to work. Another
19,300 people both live and work in the PMA. Top
PMA
Washington County
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Chapter 6 : Downtown Stillwater Framework Plan 6-63
Table 6.4: Employment Growth Trends
Stillwater Primary Market Area (2000 to 2030)
work destinations include St. Paul, Minneapolis,
Maplewood, Hudson and Stillwater.
Retail Market Conditions and Retail Development
Potential
The potential for new retail development is
influenced by overall market conditions in the
Trade Area.
Retail Sales and Consumer Expenditures
Overall, residents from the Stillwater PMA are
estimated to have spent $784 million on retail
goods and services in 2016, excluding housing,
finance/insurance, and travel expenditures as well
as vehicle purchases. Average annual expenditures
(excluding the categories mentioned above) are
estimated to be $26,935 per household in the PMA.
This compares to a Metro average of $23,834 per
household in 2016. In virtually every product and
service category, expenditures by PMA households
are substantially higher than the national average
and some- what higher than the Twin Cities Metro
Area.
In 2016, the PMA had leakage in retail sales in
nearly all retail industry groups except for Non-
store Retailers, Florists and Specialty Food Stores.
Retail leakage is defined as the amount of retail
expenditures made by Trade Area residents and
visitors that are outside of the identified Trade
Area. That is to say that households and visitors
will make purchases at retail outlets outside of
the Trade Area, which is considered to be leakage
of retail dollars. Highest leakage in retail sales
occurs in Hobby/Book/Music stores and Health
and Personal Care Stores. Other sectors with
high leakage include: Shoe Stores; Clothing and
Clothing Accessories, and Grocery Stores.
Food Services and Drinking Places represent the
largest number of retailers in the PMA at 30.3%
for the PMA and 26.0% for Stillwater city. Also
high in Stillwater city was Clothing Stores and
Miscellaneous Retailers.
Regional Retail Market Conditions
Retail market conditions have strengthened
considerably over the past few years with vacancies
dropping in most locations of the Twin Cities. The
retail vacancy rate decreased in the Twin Cities
Metro to 4.6% as of the 2nd Quarter of 2016, but
then increased slightly to 5.1% by the 3rd Quarter
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RETAIL MARKET ANALYSIS
MAXFIELD RESEARCH AND CONSULTING LLC 38
0 10 20 30 40 50 60 70 80 90 100
Book, Periodical and Music Stores
Other General Merchandise Stores
Shoe Stores
Health & Personal Care Stores
Electronics and Appliances
Clothing Stores
Lawn & Garden Equipment
Furniture and Home Furnishings
Retail Categories with the Largest Leakage Factors
(20.0)0.0 20.0 40.0 60.0 80.0
Motor Vehicle & Parts Dealers
Furniture & Home Furnishings Store
Electronics & Appliance Stores
Bldg Materials, Garden Equip. & Supply Stores
Food & Beverage Store
Health & Personal Care Stores
Gasoline Stations
Clothing and Clothing Accessories Stores
Sporting Goods, Hobby, Book, and Music Stores
General Merchandise Stores
Miscellaneous Store Retailers
Nonstore Retailers
Food Services & Drinking Places
Leakage/Surplus by Industry, Stillwater PMA, 2016
Figure 6.37: Leakage
Stillwater Primary Market Area (2010 to 2021)
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Chapter 6 : Downtown Stillwater Framework Plan 6-65
RETAIL MARKET ANALYSIS
MAXFIELD RESEARCH AND CONSULTING LLC 44
0.0% 5.0% 10.0% 15.0% 20.0% 25.0% 30.0% 35.0%
Motor Vehicle & Parts Dealers
Furniture & Home Furnishings Store
Electronics & Appliance Stores
Bldg Materials, Garden Equip. & Supply Stores
Food & Beverage Store
Health & Personal Care Stores
Gasoline Stations
Clothing and Clothing Accessories Stores
Sporting Goods, Hobby, Book, and Music Stores
General Merchandise Stores
Miscellaneous Store Retailers
Nonstore Retailers
Food Services & Drinking Places
Percent of Businesses‐Stillwater PMA
2016
0.0% 5.0% 10.0% 15.0% 20.0% 25.0% 30.0%
Motor Vehicle & Parts Dealers
Furniture & Home Furnishings Stores
Electronics & Appliance Stores
Bldg Materials, Garden Equip. & Supply Stores
Food & Beverage Stores
Health & Personal Care Stores
Gasoline Stations
Clothing and Clothing Accessories Stores
Sporting Goods, Hobby, Book, and Music Stores
General Merchandise Stores
Miscellaneous Store Retailers
Nonstore Retailers
Food Services & Drinking Places
Percent of Businesses ‐City of Stillwater
Figure 6.38: Percent of Businesses
Stillwater Primary Market Area (2000 to 2030)
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after the announcement of several foreclosures and
bankruptcy filings. However, other retailers are
moving into the Twin Cities to take their place and
the overall outlook for retail in the Metro is positive.
In the Stillwater PMA, there is an estimated retail
vacancy rate of 7.2%, which is modestly higher
than the Twin Cities as a whole, but still under
10% which is considered market equilibrium.
Combined, a total inventory of 1.4 million square
feet with 102,000 square feet vacant was identified.
The average retail lease rate for available space was
nearly $13.00 per square foot.
Retail Development Potential
Maxfield Research estimates that Downtown
Stillwater could capture about 25,000 square feet of
additional retail space between 2016 and 2021 and
another 50,000 square feet of space between 2021
and 2030. Recruiting a mix of retailers that provide
goods and services not already present in the
market will increase the likelihood that the higher
end of this range can be achieved.
Market Attributes: Conclusions and
Recommendations
The Downtown has a number of physical
characteristics that make it a strong shopping
location and a highly desirable urban district.
• Anticipated population growth in the
younger age cohorts as well as the age 65+
cohort will continue to create additional
opportunities for retail goods and services
in the Downtown.
• The 2016 median income in the PMA
($79,858) is 18% higher than the median
income in the Metro Area ($70,404).
Therefore, the Market Area is relatively
affluent compared to the Metro Area,
suggesting that households have more
resources to devote toward retail services
and goods.
• Despite the reduction in traffic expected
for the Downtown, daily traffic counts will
still remain relatively high at about 10,000
vehicles per day along Main Street.
• Downtown Stillwater is located in a solid
existing retail trade area with high incomes.
While it is surrounded by other retail
concentrations which are generally further
away, there are some sizeable employers in
the area from which businesses can draw
customers.
• It will be important to continue to promote
the Downtown after the new Bridge
crossing opens encouraging people to
exit the highway to come into Downtown
Stillwater.
The regional retail market is performing well with
new retail outlets coming into the Twin Cities
looking for attractive locations.
• The overall Twin Cities retail vacancy rate
was 5.1% among all retail center types as of
3rd Quarter 2016.
Downtown districts across the country continue
to struggle with limiting their retail outlets to
independent business owners rather than national
retail chains. National chains are familiar to the
buying public as they have been conditioned to
recognize the standard offerings of these outlets
across the country. On some level, chains provide a
comfort level to customers because they know what
will be offered. Independent retailers, on the other
hand, can provide unique and creative settings and
often carry products and provide services that are
not generally found in the general marketplace.
Independent retailers have more flexibility in how
they address local market tastes and demand.
The curious and adventurous shopper seeks out
independent retailers for a “different” shopping
experience.
• It has been the independent retailer that
has been responsible recently for bringing
back to the Twin Cities area small clothing
boutiques, catering to a mid-price point with
a mix of contemporary casual clothing and
accessories. Many of these new outlets are
located in urban shopping districts targeting
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Chapter 6 : Downtown Stillwater Framework Plan 6-67
young to mid-age shoppers.
• Other popular urban venues include
coffee/bakeries (café restaurants), gifts/
cards, bike shop, art gallery, boutique
home furnishings, vintage clothing
and accessories, reuse stores (clothing,
household items, sporting goods),
breweries, sandwich shop, coop groceries,
nails and spa/massage.
• In considering maintaining an independent
retailer status for the Downtown, regional
retailers home-grown in Minnesota could
be considered as opportunities. These
operations range in size from small to
very large (national presence), but all were
started in Minnesota. Some examples
include Caribou Coffee, Dunn Bros.
Coffee, Evereve (women’s clothing and
accessories), Buffalo Wild Wings, Aveda,
Faribault Woolens, Cambria, Famous Dave’s
of America, Geek Squad, Lifetime Fitness
and Room and Board Home Furnishings.
This is not an exhaustive list and there are
others, smaller and larger in size. Targeting
regional Minnesota companies with a
limited number of outlets could be a retail
promotional strategy for the Downtown
retail district moving forward.
• Consumer spending and retail leakage
trends for the PMA support the perception
that Downtown Stillwater and the Market
Area overall are “under- retailed.”
• Balancing the retail mix to offer goods and
services that customers purchase frequently
can help to bring local shoppers more
regularly to the Downtown. These items
typically include groceries, coffee, liquor,
bakery, cards/gifts, personal care items, food
at restaurants, convenience beverages and
food items.
• As of 2016, total leakage of retail
expenditures from the Primary Market
Area is estimated to be at 28%, indicating a
significant loss of potential sales outside the
PMA.
• Examining consumer expenditure data with
retail sales data, the largest leakage rates
occur in Furniture and Home Furnishings,
Clothing and Clothing Accessories and
Health and Personal Care Stores. Leakage is
occurring in nearly all retail store categories
to some degree, except for Non-Store
Retailers.
• Average annual expenditures are estimated
to be $26,935 per household in the Stillwater
PMA. This compares to a Metro average of
$23,834 per household in 2016. In virtually
every product and service category,
expenditures by PMA households are
substantially higher than the national
average and somewhat higher than the Twin
Cities Metro Area.
• Because of growth in the PMA household
base and accounting for inflation, PMA
residents are expected to increase their
overall retail expenditures from by $417.9
million between 2016 and 2030 and
increase their purchasing power by $300
million after accounting for leakage. The
Downtown District is likely attract stores in
the previously mentioned retail categories
where leakage exists as the local population
grows and development expands around
the properties.
• Inclusion of new retailers not already
serving the local population will help
reduce the leakage factor in the PMA as
local residents begin making a portion of
their purchases locally that were previously
made outside the PMA. Leakage will also be
reduced as residents from outside the PMA
will travel to the area due to the availability
of a new goods and services.
• In an effort to bring more customers to the
area and avoid cannibalization of existing
sales, recruitment strategies should focus
on retailers providing goods and services
that are either not already offered at existing
outlets or variation on existing goods to
offer shoppers more choice and comparison.
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• The mix should be expanded with
businesses that can pull shoppers from a
large trade area and also generate repeat
trips.
• Including new office space in the
Downtown would also draw in more
daytime population that would support
retail businesses and restaurants in the
Downtown. This would also be true with
additional residential development creating
mixed‐use buildings with housing or office
above and retail below.
Local Economy and Tourism Implementation
To implement the Local Economy and Tourism
section of the Downtown Plan, the city will consider
the following implementation measures:
To promote and maintain Downtown as a central
focus for community economic and cultural
activity, the City of Stillwater will:
• Use tax increment financing to assist major
new investment Downtown
• Encourage small, locally owned, businesses
particularly in the Downtown
• Promote office and service job locations in
and around the Downtown
• Work with local and regional economic
development interests to promote local
economic development.
• Support Downtown as a regional
destination for arts and cultural activities.
• Encourage mixed use development that
incorporates housing and structured
parking within Downtown.
To promote tourism consistent with retaining
Stillwater’s unique natural resources and historic
and architectural character, the City of Stillwater
will:
• Work with the Stillwater Area Chamber of
Commerce and Convention and Visitors
Bureau in promoting Downtown activities
and improvements
• Support year around activities that enliven
the Downtown public and cultural life
• Maintain public facilities so that the
Downtown is an attractive place to visit
• Consider establishing incentive programs
for rehabilitation of older buildings
• Continue to use design review guidelines
and processes to ensure new development
and renovations consistent with the historic
character of the Downtown
• Construct a new public parking ramp
Downtown Stillwater for employees and
visitors
• Support the Downtown Parking
Commission, as advisory group, for
managing Downtown parking
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan 6-69
Implementation & Phasing of Public
Improvements
The best plans are of little value if they are not
implemented. Maintaining a vital Downtown
and implementing the opportunities outlined
in this Downtown Plan is dependent upon
continuous proactive leadership of the community
and an orchestrated collaboration amongst city
officials and departments, county and regional
governing authorities, the business community,
Chamber of Commerce, other civic organizations
and developers. The Comprehensive Plan has
traditionally been an instrumental tool used by
the City to move strategic initiatives forward and
it is expected that this tradition will continue. The
proposed implementation plan is based on a few
key concepts.
Implementation Responsibility
The first key concept is that the City has a distinct
role in advancing the vision set forward in this
document, but cannot be the sole party responsible
for implementing all of the great ideas brought
forward during the development of this plan.
Implementation needs to a collaborative effort
between the City and various other Downtown
stakeholders, with all partners contributing their
unique expertise and resources to holistically
achieve the Downtown vision. The City’s primary
role is to facilitate the implementation of public
infrastructure projects, such as roadways, parks and
trails. Other Downtown initiatives that are equally
important to the realization of the Downtown vision
should be facilitated by the business community,
the private development community or nonprofit
organizations. This is not to say that the City has
no roles in these initiatives. To the contrary, there
is a role for the City in many of these activities,
but the leadership should come from outside the
City. Table 6.5 outlines implementation roles and
responsibilities.
Implementation Schedule
A lot of community energy has been invested in the
development of the Downtown Plan. While some of
the initiatives identified may require coordination
with stakeholder agencies or appropriate market
conditions, there are a number of initiatives that
could be brought to fruition in the next couple
of years. Early implementation successes are
beneficial as it allows the community to see the
results of their planning efforts and continues to
build momentum for projects that may require
additional feasibility analysis, agency coordination,
and financial resources. The tables below outline
proposed implementation steps that will be led
by the City, categorized by implementation time
frames. While it is envisioned that the City will
lead these projects, there are key opportunities
for the City to collaborate with other Downtown
stakeholders to assist in bringing these initiatives
forward. While not all inclusive, potential
collaboration and funding partners are identified
for various Downtown initiatives.
Task Task Lead
Public Infrastructure
projects (streets, parks,
trails)
City lead
Physical improvements
on private property
Development
community. Strategic
partnering with City as
needed
Downtown Economic
Development (e.g.,
promotion, business
mix, improvement
grants)
Nonprofit
organization, with City
collaboration
Table 6.5: Implementation Roles and
Responsibilities
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PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan
Project Task Potential Funding Partners
Provide public restroom in winter
months
Research options, select
approach, construct
Clean up alleys Develop rational and concepts,
obtain stakeholder buy-in
Shuttles for large events Develop strategy and implement Event organizers/ sponsors
Circulation modifications
• Chestnut Plaza
• Close Sam Bloomer Way
• Water Street and Nelson
Alley shared streets
• Main Street
• Parking lot modifications
between Chestnut Street
and Nelson Street
• Resolve any outstanding
historic preservation issues
• Develop conceptual and
final designs (Chestnut
Plaza, Water Street,
Nelson Alley, parking lot
modifications)
• Prototype Chestnut Plaza
to test conceptual design
and make modifications as
necessary
• Restripe Main Street
Bike Parking Determine rack types/locations,
fundraise, and install
Nonprofits/
foundations
Missing Trail Link • Perform feasibility analysis
of concept alternatives
• Select preferred alternative
• Final design and
construction
Grants and city park and trail
funds
Public Parking Structure(s)Conceptual design/feasibility
study
Lowell Park Improvements Resolve any outstanding historic
preservation issues, Concept and
Final Design, Fundraise
Parking Availability Information Investigate new technologies that
would provide information on
location of available parking stalls
Improve Wayfinding Develop concept for a family of
wayfinding signage that addresses
all transportation modes
Table 6.6: Public Infrastructure Priorities
Short Term (1 – 3 years)
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan 6-71
Project Task Potential Funding Partners
Clean up alleys Construct Property owners, arts
organizations, nonprofits/
foundations
Circulation modifications
• Chestnut Plaza
• Water Street and Nelson Alley
shared streets
• Parking lot modifications
between Chestnut Street and
Nelson Street
• Construct Chestnut
Plaza
• Modify parking lot
access and circulation
• Change Water Street
between Myrtle Street
and Chestnut Street to
one-way southbound
• Limit business service
deliveries to morning
hours before 10 am
Arts organizations, nonprofits/
foundations
Public Parking Structure Final design and construct one
structure
General obligation bonds
(G.O.), parking revenue,
parking enterprise fund
Improved Wayfinding Final design and install
Lowell Park Improvements Construct Arts organizations, nonprofits/
foundations, grants, city park
funds
New River Park (behind Coop)Concept design
Additional Street Trees
• 2nd Street (Mulberry to Nelson)
• Commercial Street (Main to 2nd)
• Chestnut Street (Main to 3rd)
Resolve any outstanding
historic preservation issues,
research options, concept and
final design, construct select
portions
Developers, jurisdictional
agencies
Table 6.7: Public Infrastructure Priorities
Mid Term (4 – 10 years)
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PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan
Project Task Potential Funding Partners
Public Parking Structure Final Design and construct for
second structure
New River Park (behind Co‐op)Final Design and construct Arts organizations, nonprofits/
foundations, grants, city park
funds
Additional Street Trees
• 2nd Street (Mulberry to Nelson)
• Commercial Street (Main to 2nd)
• Chestnut Street (Main to 3rd)
Construct remaining portions Developers, jurisdictional
agencies, property owners
(BID/SSD)
Reconstruct Main Street Resolve any outstanding
historic preservation issues;
concept and final design,
addressing space allocation
within the right of way;
streetscape aesthetics;
construct
MnDOT, property owners
(BID/SSD)
Table 6.8: Public Infrastructure Priorities
Long Term (11 – 20 years)
Implementation Strategies
The following strategies should be considered for
all public improvement projects in order to integrate
the improvements into an ongoing revitalization
and community building strategy and to gain the
most benefit from streetscapes, parks, and other
public amenities:
Coordinate Objectives with all City Departments
The planning, engineering, and inspections
departments, as well as potential advisory groups,
should refer to the guidelines and consider
associated public/private improvements and
amenities when reviewing individual development
proposals within the Downtown area. Each
proposed development should comply with the
guidelines, reinforce the desired character of
development, and contribute to creating a cohesive,
pedestrian friendly, memorable, and economically
viable place.
Developers should work with city staff and refer
to the guidelines within the Downtown Plan – and
previous planning studies – prior to generating
design concepts, in order to better understand
the overall goals of the community and how their
property fits into the context of the Downtown plan
and expectations for public/private amenities.
The guidelines for site planning, building placement,
parking lot edge treatments and landscaping should
be referenced during the site design phase of the
project. Developers should also discuss the options
for their particular site with city staff to determine
if parking lot edge treatments will be constructed
as part of the site redevelopment or a larger public
street improvement project.
PLAN OF STILLWATER
Chapter 6 : Downtown Stillwater Framework Plan 6-73
Place projects in the Capital Improvement Plans
City departments should refer to the components
in this Framework Plan to coordinate, design, and
budget for capital improvements and to define
public/private partnerships to finance and maintain
public realm improvements. City departments
should refer to the schematic designs for the
individual areas as a basis from which to develop
more detailed plans for construction.
Coordinate Staging and Funding
The city should share its redevelopment objectives
with the state and county DOTs and determine
schedules for street improvements and potential
funding sources.
Coordinate Staging and Funding with
Redevelopment Projects
Define a Maintenance Strategy for Each Project
The long term maintenance tasks and associated
costs are a critical consideration for the success of
public improvements and amenities. A strategy
should be created that defines a funding source,
such as a special maintenance assessment district
that assigns responsibility for maintenance of
the various streetscape or park components.
Responsibilities may be delegated between the city
and county staffs, property owners, volunteers, or
private contractors.
Maintain Community Involvement
In order to build on the energy and momentum
established during Downtown Plan update, it
is suggested that an Implementation Advisory
Committee be established to help guide the
realization of the initiatives brought forward in
this plan. Given their extensive knowledge about
the plan, it is suggested that the Downtown Plan
Advisory Committee be asked to continue their
service, if they so choose, as members of the new
Implementation Advisory Committee.
Communicate Vision and Celebrate
Implementation Successes
The vision set forth in the Downtown Plan is of great
interest to community residents. It is important to
keep informed, enthused, and actively engaged
in assisting with the implementation of the plan’s
strategic initiatives. There are a number of tools and
approaches that the City can use to keep residents
informed about plan implementation. Just a few
examples of potential communication approaches
include:
• Community newspaper articles
• Information booths at community events
• Community newsletters
• City website
• Facebook