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86-94 Pli�� -�INANCE RK CANARV - DEPARTMENT G I TY OF SA I NT PAU L COUflC1I BLUE -MAVOR Flle NO. �� i • � . . ouncil Resolution Presented B Referred To Committee: Date �� `� 8� Out of Committee By Date RESOLUTION ADOPTING DOWNTOWN SAINT PAUL, FRAMEWORK FOR DEVELOPMENT, 1985-1990 AS AN AMENDMENT TO THE COMPREHENSIVE PLAN FOR THE CITY OF SAINT PAUL WHER�AS, The City of Saint Paul is authorized under Minnesota Statutes, Section 462.353, to carry on corr�prehensive municipal planning activities for guiding the future development and improvement of the City; and '�IHEREAS, The City of Saint Paul as a local c�overnment unit within the metropolitan area is required under Minnesota Statutes, Section 473.858, to prepare a Comprehensive Plan in accordance with laws of 1976, Chapter 127; and WHEREAS, The Council of the City of Saint Paul is authorized under Minnesota Statutes, Section 462.355, to adopt or amend a Comprehensive Plan or portion thereof after a recom- mendation by the Planning Commission; and WHEREAS, The Downtown Framework Task Force, sponsored jointly by the Chamber of Commerce, The �owntou�n Council , The Downtown Con�nunity Development Council , the Building Owners and Mana�ers Association anci the Planning Commission, has prepared Downtown Saint Paul , Framework for Development, 1985-1990; and WHEREAS, The Planning Commission has reviewed Downtown Saint Paul, Framework for Develo ment, 1985-1990, a copy of which is on file in e o ice o t e epartment of Planning and Economic Deve opment, and, after a public hearing, has by resolution adopted October 11, 1985, recommended its adoption by the Council of the City of Saint Paul as an amendment to the Co�nprehensive Plan; and WHEREAS, The Council of the City of Saint Paul has reviewed Downtown Saint Paul , Framework fior Development, 1985-1990, including its relationship to other e emen s o e Compre ensive Plan as have been adopted and the overall health, safety, and welf are needs of the residents of the City of Sainz Paul an� the Metropolitan area; COUNCILMEN Requested by Department of: Yeas Nays � �� Drew Masanz [n Favor Nicosia � Scheibel Sonnen A gai n S t BY Tedesco Wilson Form Appro ed y ' y o ey Adopted by Council: Date Certified Passed by Council Secretary BY gy. A►pproved by Nlavor: Date Appr e M or for Submi Council By BY WHIT•£ -jITY CLERK PIA�( � - FINANCE GITY OF SAINT PAUL Council J /// CANARV - OEPARTMEN7 Q/ _�� BLUE -MAVOR FIIC NO. O�O C ncil Resolution Presented By Referred To Committee: Date Out of Committee By Date NOW, THEREFORE, BE IT RESOLVED, That the Council of the City of Saint Paul hereby adopts Downtown Saint Paul . Framework for Develo�,ment, 198�-1990 as an amendment to the Comprehensive P1an for the City of Saint Paul , subject to such review by the Metropolitan Council as may be required by law. BE IT FURTHER RESOLVED, That this action does not constitute an implicit adoption of the Comprehensive Plan of 1963 or portions thereof as previously recommended by the Planning Commission. COUNCILMEN Requested by Department of: Yeas Nays D��lelGi'Ti�fl41f � � N��os►8 In Favor Scheibel Sonnen � Against BY �ss► Wilson JAN 2 819g6 Form Approved y C' Attor y Adopted by Council: Date Certified Pas ouncil Se ar BY By _ a,-e�., c A►pprove y Mavor. Date ^ J�s�'� � � �� Appr y y or Subm's io to Council By � BY PUQl.ISHED ��R 8 - 1986 � � � � -�� CITY O1' S13INT PAUL =.....:, o�c� o� z•s� czz� covrrczL ...,... ......, n3,^.�: .« - • Date ; , .lanuary 13, 1986 ' COMM (TTEE REPORT T4 = Sa�nt PQU I City Counci( F R O M � C O Ct1 t1'�l�'?'@� O h ��ty Deve 1 opment and l"ransportat i on CHQIR , William L. Wiison i . Urdinance amending Chapters 60-62 of the Legislative Cocle pertaining to College, University and Seminary Uses • (Committee recommends approval ) "L. R�soi��t�on �dopting Down�own St. Paut , Framework for � Development, 1995-'t99Q �s an amendment . �o the Comprehensive � � P��it� '�#�c�r ��he C i ty ot= 5t. Nau 1;��1��;-:;� .,��s apQi,.��a��.�T� . <�.... ,.,r' , . .... � . G..� C7 ��+ --j � �7_...� .,��aw . . -�—'-�,�i � _� �.._..Ty �� '� r" � � '— �:+�� 7'� �,..!� � � _'_�„� .r.�y`.,;8 -.._y.� ....r�,. A.�.y � ' � �r•:� � �� - SEVII�ITH FI,ppR $pII�I'T PAUL,MINNESOTA 55102 .g.�, PED E1EP�RTlEN'T U`�(-�NO �6� ��, Ken Ford CONTACT X7494, ext. 291 PHONf �'� Nov. 4, 1985 DATE ej Qr� e e ASSIGN NUMBER FOR ROUTING ORDER Cli All Locations for S' nature : �epartment Director � Director of Management/Mayor F Finance and Management Services Director City Clerk � Budget Director / �� • �� T � City Attorney WHAT WILL BE ACHIEVED BY TAKING ACTION ON THE ATTACHED MATERIALS? (Purpose/ Rationale) : Downtown Framework plan recommended by Planning Commission for adoption as an amendment to the City's Comprehensive Plan will be transmitted for Council action. �v � ` R�cE.IVED COST/BENEFIT, BUDGETARY AND PERSONNEL IMPACTS ANTICIPATED: NOV �' �' ��5 None, directly �\�� rn� �-. ` � �.r.,�% p�lAYOR'SOfFICE _ t�,,,�,` � _�� - ��' 1z �i r��, � �4- y- , � ��: y`s.. � � ,_� FINANCING SOURCE AND BUDGET ACTIVITY 'I�UMBER CHARGED OR CREDITED: (Mayor's signa- ture not re- Total Amount of Transaction; quired if under _ $10,000) Funding Source: Activity Number: ATTACHMENTS (List and Number All Attachments) : 1. Letter of transmission for Mayor's signature 2. Copy of Downtown Framework City Council draft, for Mayor 3. Copy of Planning Commission Resolution adoptina Framework for Mayor 4. 10 copies of Framework draft and resolution for transmission to City Council 5. City Council Resolution . DEPARTMENT REVIEW CITY ATTORNEY REVIEW ,�Yes No Council Resolution Required? Resolution Required? ' Yes No Yes �No Insurance Required? Insurance Sufficient? Yes No Yes �(No Insurance Attached: 7— (SEE REVERSE SIDE FOR INSTRUCTIONS) Revised 12/84 �-- ��0 - 77 �tT*�• CITY OF SAINT PAUL oR4 0 �� OFFICE OF THE MAYOR � iiii�i I�n +° e ro �o 347 CITY HALL �ss• SAINT PAUL, MINNESOTA 55102 GEORGE LATIMER (612) 298-4323 MAYOR November 14, 1985 Council President Victor Tedesco and Members of the City Council 719 City Hall Saint Paul, Minnesota 55102 Dear President Tedesco and Members of the City Council: Enclosed is the Downtown Framework adopted by the Planning Commission and recommended as an amendment to the Comprehensive � Plan. This plan is the result of an effort by the Planning Commission, the Chamber of Commerce, the Downtown Community Development Council, the Downtown Council, and the St. Paul Building Owners and Managers Association to establish consensus on some basic directions for downtown development for the 1985-1990 period. The � shared outlook which this planning has helped to bring about will enable us to move forward in an efficient, cooperative effort to continue to realize more of downtown's potential. I recommend that the Council consider the plan carefully with a presentation from staff and the Downtown Framework Task Force, hold a public hearing, and proceed with adoption as recommended by the Planning Commission. Very tru yours, � � er May r GL:lm Enclosure cc: David McDonell Peggy Reichert �46 u`-_. ��C - �/`� � ;�'!�' ..;. , i', % , " � i i�s��a i i / �.: /F �� /! , / �� ,i ;" / �,l �/ , ,� . � /F �,6� ��✓/ �N ///�i' �� (�i� i �/�� i i .e e y��i '%s'�� S� Y��%Ati�:. �� /� /�j��i�� /� %'`lii/s au` i� 's g� � `� �i/'� i �� ^s3/�r�r///�9 / /� � �%�%� � ` x �� y �yii..�� P�i ��iif��/��r �, ,/�r �i//6`i r F�� ,'�,�': ,�'f ,�ly�� ,�G��.i�.. /F'i y.��'j��i e � , �� ' w >. s i ; � �� i �/�� : " � qxzr- � y � � . :; ��#�. ,� i ,�u �/ / . ;; x. s < � ;��i �� :� . *eir:a � . : s .: � s/ �s [ ., � �"� •w .��i��f: ��. ��: s xxrrs•x' � xa.r.t.ri� �� : . x� ��53 � � �� iNtE�R �Y �;A�� sr+r+'�«:.s.''�r+�+«�*�9%asa"sa ,��,','i: �� ,saf, f Ayb!4M. : �.,,,. ry ,� « ,r,�`�� ` afifxi t [gz��;+�i� �, � iY �yfs, ..� 46t�1,� ��Zx3 R ; � y � p.: �y ,w �� ; ;�8�is�'�. aa • • 4��R'1Yx 3. �� . ' '� � -:9: aa:3 .. , �. a� � �. �� I �/,'�'� r . I�� 1 f ` �o/ 'y� ds,u,� :.;:. ".s _„ .,....,. ,::;.-.. . e:&s.:..:.. : .y.,, W , , }�. �, ' r: ...�- ../. � Y ^. :a.,,.,,. ..: �r � :�' �y�. :�. - �-: � �� Y PS�f "�. � � � /.l/�i/ i . � "'n+,�, ' H x,M � ,: s' � % ..._ h�//�.� Hm-� ,,,,�w^,.°"",.'� � v.� . - ^"• �-,.;_ � �. : ,� - .=� �- � ; / � ��,.a,.- ,..�, � �� x �ti�� y � £ y . „ . ,,. ,. , ,,, . , _„�.. : �:, � � �, _, . ; . :- , " �, �,•.a.r�.•,� �.-- - : #S. ,._ . �:. � � + . , ��r, .. ., .� a� < �� .. .,, ro..,,.�-�'",,:;,:, Downtown Sai nt Paul Eramework for Development 1985-1990 Adopted by the Planning Commission October 11, 1985 Downtown Framework Taslc Force �� DIVISION OF PLANNING DEPARTMENT OF PLANNING AND ECONOMIC DEVELOPMENT CITY OF SAINT PAUL CITY HALL ANNEX 25 WEST FOURTH STREET,SAINT PAUL,MINNESOTA,55102 • : Downtown Framework Task Force Membership David McDonell, Taskforce Chair ,� Planning CortmissioN Dick Broeker Chamber of Comnerce Peter Brown Planning Corrmission John Mannillo Building Owners and �4anagers Association Jim Miller Building Owners and Managers Association Ron 0'Neal Downtown Community Development Council John Nasseff Chamber of Commerce Craig Rafferty Downtown Community Development Council Jim Stolpestad Downtown Council Robert VanHoef Planning Corrmission Participating Staff Bob Kren Downtown Council, Chamber of Commerce Priscilla 'vlyeth Downtown Community Development Council Jim 0'Leary Deputy Director for powntown Development, PED Peggy Reichert Deputy Director for Planning, PED Rick Wiederhorn Riverfront Commission Weiming Lu Lowertown Redevelopment Commission ; Allen Lovejoy District Planner for District 17 ! Kenneth Ford �'� Planner-in-Charge for the Framework i �� Introduction The objective for this downtown framework is downtown as a visitor center, strongly consensus on basic issues that will affect the ' supported by the State capitol area course of development over the next five adjacent, is a role that merits greatly , years. It has been drafted by a task force on increased attention. which the city at large and the diverse interests of the downtown community are 4. The City of St. Paul began as the head of represented by members of the Planning navigation on the Mississippi kiver. The Cortmission, the Downtown Comnunity Development river remains an important part of the Council, the Downtown Council, the Chamber of character and the experience of downtown. Con�nerce and the Building Owners and Managers It can and should play a larger role than Association. Consensus among the interests , it does today as a focus for interest, represented by these groups should improve our ' activity and opportunity. ability to realize our best potential as development proceeds downtown. ', 5. As a place, and as a center for many different activities, downtown St. Paul has The task force has looked at downtown as a character that is special, that is all its market place, as a work place, as a place to own, that sets it apart from any other live and as a center for culture and , activity center in the metropolitan region, entertainment. In addition, elements that character that needs to be recognized, support all downtown activities and play a ' protected and nurtured. Much of its strong role in determination of form and character is given by the pattern of narrow quality of downtown spaces have been reviewed: streets and small blocks established long open space, circulation, parking and design ago and the rich diversity of historical considerations. facades and new structures within its area on the river bluff surrounded by higher Certain themes have emerged that have terraces of the city's neighborhoods. particular importance to downtown St. Paul Development potential around the edges of today. They are reflected in many of the downtown is nevertheless extensive. issues and objectives discussed in each Development should support, add to, and section of this framework: build on the strength of the established character of compactness and fine-grain 1. Downtown is a lively center for the city diversity. and its suburbs today in a way that it simply wasn't as recently as 12 years ago. The "downtown" which the framework Looked at closely, what has been achieved addresses is for the most part is remarkable particularly for what it geographically limited to the area bounded tells us about potential. Perhaps the most by the Mississippi River on the south, important job we have is strengthening our Kellogg Blvd. and the I-35E Parkway on the own shared vision of what downtown is all west, and I-94 and the Lafayette Bridge on about and letting the rest of the city and the north and east. The task force the rest of the region know about it. recognizes that any such boundaries are, to a certain extent, arbitrary. The 2. In every major development area: office, limitation is established to simplify the retail and residential, and cultural and task, to enable focus on issues of present recreational activities, we have concern for the "core area" and its outstanding strengths to draw on and a immediate surround. The state capitol metropolitan market to build to. The new area, the business areas northeast of I-94 and expanding level of cultural and and the Lafayette Bridge, the airport, entertainment activities, the major new Riverview and Harriet Island areas office role related to international trade immediately across the river, Irvine Park and the riverfront initiative are examples and the Fort Road/United Hospitials and of the emerging opportunities that suggest Cathedral Hill areas all influence a future of substantial growth. strongly, and are influenced by, the more narrowly defined central business district. 3. The growing number, variety, and quality of Furthermore, all of these are areas of cultural opportunities in downtown St. Paul current change and new opportunity. is one of our major strengths. Cultural, Because it is not possible to address the entertainment and recreational potential of these areas adequately within opportunities are among the most important the constraints of the present study, it is assets for downtown's strength as a market necessary to forgo some of the advantages place and as a place to live. Such that undoubtedly would come with a truly amenities for employees are a prime canprehensive study of the entire central consideration in business location area of the city. decisions and hence important for the office space market. And the role of � 1 Summary OOWNTOWN WORK PLACE Over 42,000 people come to work in downtown A. Support for street-level retail where it ' St. Paul and 9,000 work in the State Capitol is strong - area adjacent. Most of them work in offices. The strength of the office base and its B. Encouragement of retail activity on both continued growth are key factors for the the street and skyway levels in areas of future economic well-being of downtown. As retail concentration the variety of office uses continues to expand, emphasis on particularly appropriate C. Good vertical integration between the target market segments may offer the most first and second levels as skyways are important opportunity for growth. The World extended; • Trade Center under construction represents a strong commitment to one such target: key 3. Continued improvement and promotion of the areas of business heavily involved in variety of things that make downtown a international trade. Over the next five distinctive and attractive center of years: activity: cultural and entertainment opportunities, historic setting, east metro 1. Expansion should be pursued in those areas business center, and government center such as international trade where St. Paul functions and general variety. can offer particular strengths; DOWNTOWN LIVING PLACE 2. Existing office space should be With the major residential development of strengthened through support for recent years, downtown St. Paul has become an � rehabilitation and renovation and public F attractive possibility for residence for many. improvements which affect the quality of This role is new and not yet firmly the environment for, and access to, established. The potential for expansion of existing buildings; residential opportunities downtown is extensive. Our downtown population of 3,200 3. New office space built should fill in can be expected to more than double within the under-used spaces in the existing office next ten years and eventually to expand much core area, expand the core area by further. The commitment of the City and the incorporating adjacent sites, and help to downtown comnunity to realization of that establish a stronger tie with the state potential is clear. The goal will best be capitol area by expanding northward. supported over the next five years by: Rehabilitation is encouraged wherever better use can be made of existing 1. Strong reinforcement of the emerging buildings; residential neighborhood identity for the Mears Park area of lowertown in 1985 and 4. Consolidation and expansion of State office 1986; space downtown should be encouraged. 5. A first-rate telecarmunications system Z• Exploration of the residential potential of riverfront sites and initiation of housing should be developed in the downtown area. development there; DOWNTOWN MARKET PLACE 3. Continued exploration of market potential Downtown St. Paul is a marketplace of regional for residential development at other importance. A period of major growth in downtown sites and development where and retail activity began with the construction of When market opportunity warrants; Town Square in 1980 and is continuing with the addition of major components in 6altier Plaza 4. Addition of more than 2,000 units to the and the World Trade Center. As a retail supply by 1990; center, downtown is quite distinct in character from shopping centers or from any 5. Continued effort to ensure that a broad other retail center in the metropolitan area. range of housing needs is met in new There is considerable opportunity for downtown development downtown; I to capture a larger share of the area retail market. This goal will tiest be supported by: 6. Continued progress in the development of 1. Reinforcement of the concentrated retail amenities downtown that make it an activity in the major centers: The Town outstanding place to live: culture and Square/World Trade Center/Carriage Hill entertainment, inviting public spaces, a area and the Mears Park area of Lowertown; full range of shopping and service options, a safe and easily usable skyway system, 2. Addressing the impact of the skyway system convenient transit and circulation, and by: light and active streets at night. 2 � < �� available space for parking in the right - ` � � location. Circulation and parking systems serve most needs reasonably well today. = Improvements that will be needed over the next �y five years include: °' 1. Strengthening connections into the downtown � and reducing the potential for future ��£ �� :: �� • � traffic congestion within the core; : � `�' �` � � - �' ' � � 2. Reinforcing the pedestrian orientation of , � � � � � . :� � � the downtown core; , �v_ "' � �� ,"''*� , �,� � 3. Increasing transit usage; �� 4. Providing additional parking for high �,,� demand areas and designing new ramps for �� " maximum use. �� ,�s � �� ;�s• �` � � �� A OPEN SPACE �° Open Space: Rice Park, Mears Park, Kellogg � ` tAall, the Capitol Mall and numerous smaller ` spaces are among the most important elements of the valuable character and quality of :;: ;Y� � �'� downtown. Open spaces give identity to ` `� different parts of downtown and establish relationships and give form to the whole. Some spaces are in need of improvement. Some contribute more than others. We do not have �' � ,�_ , an adequate assessment of the total open space ' �� • system or the guidelines we need to ensure that we take best advantage of open space as development continues. We need to: 1. Undertake a thorough assessment of open DOWNTOWN CULTURE AND ENTERTAINMENT CENTER space downtown and establish guidelines and The concentration of cultural, educational, priorities for improvement; recreational and entertainment activities 2. Complete improvements in some areas that downtown is a new strength of major significance. Uver the next five years: will support other objectives. These include Kellogg Mall, Mears Park, and the 1. Downtown promotion should give strong easterly portion of Seventh Place. emphasis to the wide variety of outstanding ' cultural, entertainment, recreational and URBAN OESIGN educational opportunities downtown and Issues of urban design quickly become apparent encourage multi-purpose visits; under each subject addressed in this framework. For every function of downtown, 2. Culture and entertainment opportunities the distinctive character and quality of the should be considered as important as area is of prime importance. Much more office, retail, or residential uses for comprehensive and detailed attention to support, development and promotion efforts; �mportant aspects of character and form downtown than this framework can provide is 3. Planning and improvement efforts should needed. emphasize linkages between important cultural-entertainment activities, between 1. Undertake a comprehensive urban design important activity centers, and linkages study in 1985 which addresses those aspects with other major destinations downtown. of the urban fabric that contribute most to the character and quality of the area and CIRCULATION ANO PARKIN6 provides guidelines for enhancing them. Nothing is more important to the realization of our higtrest potential for living, working, 2• Undertake a brief study immediately to shopping and visiting downtown than convenient provide direction for continued action to access to the district, pleasant and improve lighting downtown. convenient circulation within it, and readily 3 Work Place Office Development Experience The pace of new office space construction in downtown St. Paul and the Twin Cities area as a whole in the past decade has surprised market experts and surpassed most forecasts. Since 1974, the downtown St. Paul office base has increased by over 50 percent and now totals approximately 8.0 million square feet �`�€ � � � � � � (exclusive of government office buildings). Over the same period, the office base for the Twin Cities area has grown even faster, increasing by 108 percent to its present total of approximately 60 million square feet. The boom in office construction that is happening � ,�� here has occurred in otner metropolitan areas � ° throughout the U.S. htore office space has �� been built in the U.S. over the past five years than in the entire decade of the 1970's. Since 1980, approximately 1.8 million square � �;�� feet of new office space has been added to •�° ��• � ; downtown St. Paul. The major new office ,� . ;:� '` buildings built during this period include the Amhoist building (175,000 sq. ft.), the Piinnesota Mutual building (300,000 sq. ft.), ,� : � .. and the Conwed and North Central Life Towers � in the Town Square complex (475,000 sq. ft. � total). �� _ z: Office building. renovation has had an impact � ` on the downtown office market. Two recent renovations include Park Square Court (85,000 sq. ft.) and the Pioneer/Endicott complex , �., ., r_. (207,000 sq. ft.). Both are now considered ...; . .. . ,. Class B space. " � Geographically, Class A and B office space in downtown St. Paul is generally concentrated in what's known as the downtown office core, A recent market study (Feb. 1985) indicated a roughly the area bounded by Jackson, St. total vacancy rate of 7.4 percent for all Peter, 4th and 8th Streets. Class C and D buildings are generally found around the outer types of private office space. This is a substantial drop from the 19£31-1983 vacancy edge of the core. rates, and evidence of a general downward trend in vacancies that has been substantiated As in other cities, vacancy rates have been by other data. relatively high during the building boom years of the 19i30s. Four major additions to downtown office space are currently under construction: 1979 1980 1981 1982 1983 1985 Sq• Ft• Available Class A 1.0% 0.2% 21.8% 15.OX 17.7� 10.3% Galtier Plaza 60,000 1935 Class B 4.3`6 3.8% 4.7% 2.9% 4.0� 5J� � Union Depot 30,000 1985 Total 5.9% 5.9% 10.4% 10.9% 9.8e 7.4� Private Qurlington Northern 200,000 1935 Off i ce World Trade Center 450,000 1987 Source: St. Paul Building Owners and Managers Association and James Q. McComb and Associates Total 740,000 sq. ft. 4 Another project tentatively planned is the Nations building, an expansion of state office rehabilitation of the bottom two floors of the space across the Interstate highway which - HEMAR building for competitive office space separates downtown from the capitol area, (100,U00 sq.ft.). contributes toward this objective. Manufacturing Activities Downtown ,, � pl�� , �r�� Although downtown St. Paul is seen primarily -"`�r� �' as an office work place, manufacturing , �?� „ activities also take place downtown. Data .��,�� from the 1984 Downtown Survey indicate that �� approximately 2,000 of downtown's 42,000 � , employees are engaged in manufacturing � �� i � ' / activities, and nearly all work in the � , �,.'`,' j � �� '�' Lowertown area. This is unsurprising given 1�� " '' � ; �� „��'. ,� that Lowertown's many warehouses and older y; � � buildings are especially suited for j, %,', ;y � manufacturing activities. �� •"'t"F' , �, , � � � � � � : �., ..�y ; f, ' Manufacturing activities traditionally are low `' density, requiring a relatively large number E _�;; of square feet per employee at relatively low " ;` ��, ; cost. As redevelopment efforts continue in ' �,. Lowertown, real estate values will continue to ` rise and market forces wili tend to displace , , . �•°��"'"'" , �m "' the manufacturing activities there. This is a Future Trends in Office Space Development trend that appears to have occured over the past five years, based on 1979 and 1984 The February 1985 market study by James B. Downtown Survey data, and will probably McComb and Associates forecasts a 1985-1990 continue into the future if redevelopment office space demand of 1.3 to 1.7 million efforts continue at the same pace. This does square feet with a "probable forecast of 1.5 not mean that manufacturing activities are not million sq. ft." Uncorrmitted space in new appropriate downtown. Manufacturing projects under construction, and existing activities should be encouraged to remain office space in excess of a five percent until redevelopment activities make such low vacancy rate equal approximately 80U,OU0 sq. density uses downtown economically infeasible. ft. This leaves a theoretical excess demand When that occurs, the City should make every of 700,000 sq. ft. for downtown St. Paul effort to relocate these businesses in through 1990. appropriate industrial locations within St. Paul. While these figures indicate substantial demand even beyond the World Trade Center Telecortmunications Opportunities within the next five years, they likely do not adequately reflect the real potential. Both Telecommunications facilities appear to be the the substantial office base created over the infrastructure of a future that is not very very recent past and particularly the World distant. Awareness of the potential and the Trade Center suggest new initiative and the opportunity for telecommunications in St. Paul likelihood of growth not suggested by analysis has grown with establishment of Minnesota of past experience. Public Radio facilities downtown, World Trade Center plans, opening of Continental The location of new office space is a Cablevision offices, consideration of the consideration of some importance, though potential for new public television facilities market forces will likely dictate an efficient downtown, and recent strong growth in the pattern. Concentration provides the high heavily information-dependent service level of activity that supports other downtown industries. Continued growth is anticipated , functions. Concentration also allows for the in businesses such as finance, insurance, most efficient provision of transit and publishing, canputers and other high- parking. Some spaces remain within the technology service industries. The arnount of existing office-retail core where substantial growth realised will depend in part on how office development can occur. well telecommunications needs can be met. As it becomes necessary for the core to As with any canponent of infrastructure, a expand, expansion northward in the direction leadership role on the part of the city will of the state capitol will help to establish be necessary to ensure orderly development of the stronger tie with this adjacent area that facilities that will serve the city's best has long been desired. The proposed Mall of potential. 5 Work Place: lssues and Direction , ' A. TARGET MARKETS FOR EXPANSION, RENOYATE 4. The goal of a stronger connection with EXISTING SPACE the State Capitol area should be pursued with expansion of the office core to the 1. We should continue to build on the north. office base established with emphasis on particularly appropriate target segments 5. State government should be encouraged to of the market. International trade is locate its office space within downtown. established as one of what will be many important targets, particularly C. STRENGTHEN SIDEWALK ENVIRONMENT international trade in the areas of . agriculture, bio-medical products and 6. Because of the volume of street level : high technology. space and because of the importance of the skyway system, appropriate treatment 2. Rehabilitation, renovation and of ground level walls, windows, doors restoration of existing office space has and setbacks becomes an important at least as high a priority as consideration for sidewalks amenable to development of new space. Public pedestrians. improvements, including parking, circulation, transit and environmental D. SUPPORT MANUFACTURING ACTIVITY amenity improvements should support the continued strengthening of existing 7. Manufacturing uses downtown should not office concentrations. be overlooked. They represent significant employment and appropriate B. REINFORCE ACTIVITY CONCENTRATION MIITH NEW use of some space and should be SPACE supported where they can be expected to continue. As space in some areas, 3. Infill development within and particularly Lowertown, increases in immediately adjacent to the core will value, displacement of manufacturing support the goal of concentration and uses is likely. Other appropriate reinforcement of the existing office and locations in St. Paul should be planned retail functions. and promoted as relocation and expansion sites for light industrial/manufacturing iuses. Some segments of University ,��; ( Avenue appear to have such potential. '' �U , �' ❑�❑i_J Development for light industrial uses at Q ��O �OO °�O near-downtown locations such as the area O east of Lowertown would help to i ��OOO� 0 ��0 0 reinforce the downtown housing market. ' �/n ��0�' O�a0�� E. PURSUE DEVELOPMENT OF FIRST RATE ! ��,�'�� O\O��O OO� � TELECOhMUNICATIONS CAPABILITY O • �O O 8. Facilities already in place and planned . ..:::::.. ' � • .. :;;:• :.:;;::. should be viewed as an important . 00�0 �� `'.;:.�O beginning toward a first-rate I—� � .� ' �� j telecanmunications system downtown. a��y� ��`"`��.�"� •:�c;:'•"`.�•�:� / \ Telecommunications capabilities should a � ...: •• :,�z:�:•.:• � , �,', � .: • �� i' � '°°��°•' ' ••°'••�:s'€::••::�°::::: be viewed as an important element in .. ' . . �' ��-'�� •�••"�'�••°�'��•.�.::::•,"�� .� target i ng markets for cont i nued growth. • ... .... ❑ �'.• "`'.,.:�:::: .•• � O __-� Dd�`��°`""�`��.. 9. In its roles as catalyst, partner and � planner/regulator in downtown i O/�� development, the City should work to I w�OO � � stimulate development of high quality �O /JO ,�� faciliities that will make downtown , i � / � �0\ \ particularly attractive to information- � � \� , dependent service business. In � ; particular, planning leadership will be � � O required to ensure that incremental � '., � � improvements will contribute to i realization of the most effective NEN OfFICE CONSTRUCTION SHOULD FILL UNDER-USED SITES coordinated system. WITHIN AND ADJACENT TO THE CORE AREA AND STRENGTHEN THE LINK MITH THE CAPITOL AREA BY EXPANDING THE CORE TO THE NORTH. 6 Market Place Recent retail growth downtown reverses '' The areas of particular interest for _ _ substantial decline experienced in the 1970's. development directions in the imnediate future The number of retail businesses has grown are 1) the nature of continued retail significantly over the last five years. The � expansion and the type of retailing most change is due in large part to the appropriate to downtown, 2) the relationship construction of Town Square in 1980, an between sidewalk and skyway space and 3) the enclosed shopping mall that added importance of other activities and the quality approximately 45 stores and 215,000 square and character of the environment which draw feet of retail space to downtown St. Paul. people downtown and provide the district's Another significant change was the complete greatest strength as a marketplace. remodeling in the early 1980's of the 380,000 - square feet Dayton's department store adjace�t Retail market analysis completed after Town to Town Square. Square was opened indicates that one or possibly two additional department stores are While the opening of Town Square has increased needed downtown to take full advantage of the the number of retail establishments, it has district's retail potential. Presently, a also consolidated retail activity in a large great deal of shopping from downtown's market center with interior orientation, causing a area is lost to other centers. A more shift in emphasis away from downtown's complete offering of department-store-type traditional street level activity. The merchandise is needed to ensure maximum strongest street level and sidewalk-oriented attraction for major shopping. activity remaining is the area bounded by St. Peter, Wabasha, Fourth and Seventh Streets. At the same time, current trends in retailing place increased emphasis on smaller, often Two major additions to downtown retail space "upscale" shops in an environment of variety are currently under construction: Galtier and interest. Downtown has strong and Plaza, a mixed-use development with 113,000 extensive assets for this type of retailing. square feet devoted to retail use and the Small-shop retail space will expand greatly World Trade Center with 160,000 square feet of with the completion of Galtier Plaza and the retail space. Combined, these structures World Trade Center. represent a seventeen percent increase in retail space downtown, all of it devoted to smaller shops. �„�"",.r,_ ,: . � , �' ,.., , -��' � �� N�.,,-, .�� . , , �.. .� . - ; , .n.� ,. ,.. . � � ��, .. S � y I � S S, �. i` : .. �/. 'i: ,. �n7�F .�� ..:�... ,;.. .. :�.:. / ... ... .... � � � //ii � i II�I � I � ,:' ��°i. ,,� , . . ,% ,. �.. �, . ��;- � ��., ��. � ' The movement of retail activity to the skyway level is a trend that has picked up momentum �' , : as the skyway system has expanded. Evidence F� that a skyway level location is perceived as more desirable than a street-level location is provided by the 1984 Downtown Survey. Firms A� ' ;.:. on the skyway level paid higher lease rates (an average of 510.58 per square foot, net) than firms on the first floor or street level ($8.90 per square foot average). The other side of the coin of expanded, convenient interior space in some cases is � unpleasant sidewalks, marginal retail areas, � and lifeless spaces that detract from the overall vitality and attractiveness of �� " '� downtown. � " �,,.a'"rr�+' ,. � � � � � � � .� � w» � �. F �� ,� # . '.�w°`. ': Market Place: Issues and Direction A. SUPPORT CONCENTRATED RETAIL ACTIVITY 4. Al1 of downtown would fit into the area of a large shopping center. Design 1. An additional department store is features and circulation systems should important. An organized, cooperative create the linkages that allow it to effort to secure the appropriate firm function as one large activity center should be developed as the retail space with easy and inviting access to all of the World Trade Center is completed. parts. 2. Space must be reserved which will 5. Probably the most important support for provide the most advantageous location retail growth will come from recognition for a new department store relative to and development of those non-retail the Townsquare/World Trade Center features that contribute to the complex. The store should anchor the effectiveness of downtown as a west end of the complex. marketplace: cultural and entertainment facilities, historic character and 3. New retail development should variety, residential, business and particularly be encouraged around government activities. ' existing, defined centers of retail activity: Town Square/World Trade 6. As retailing expands, reliance on the Center/Wabasha St./Carriage Hill and the suburban shopping center model should be Mears Park area of Lowertown. avoided in favor of retailing options which take full advantage of the compact form and the variety of environment and experiences which downtown offers. 8 � ___._ .._ .___ _. - __ � 7. Ample and convenient skyway-connected � B. IM�ROVE PEDESTRIAN EXPERIENCE ' parking is one of the best advantages � ,� downtown has today for shoppers. It is 8. Development and improvement actions not as widely realized as it should be � should support sidewalk-oriented, street �: � because access to it is not as clear and ' level retail activity where it is ' easy as it could be. Care must be taken strong, particularly in the Carriage � that adequate short term parking close Hill and Wabasha/St. Peter area. Any to retail activity remains available as additional skyway proposals in this area I _ further development is completed. On- ; should be carefully evaluated for impact _ site parking (within one block) should on existing retail space until or unless ' continue to be part of any major retail comprehensive redevelopment for a ; -• development. complete rearrangement of space is under ', consideration. ' ; 9. Sidewalks and facades where there is - retail activity should be designed to � � a ❑�� contribute as much as possible to an p a attractive pedestrian environment. ��O QO �O Retail space should have window displays �OOOOj� � p�� O faceat Sedewalks shouldcbe�widecenoughk D�O��'� O to accommodate pedestrian travel �. O�oOQO 0 com�ortably, and building facades should �� O� p be articulated, having definable floor 0 �- Q levels and detailing that increase their visual interest and attractiveness. ��.'°�� '�. I 10. Skyway connections through any new space ' ' ��, >::;::��:;'�• �� o developed must be designed for 24-hour � / aQ:;��:.;�� O � securi ty. ��""•:�• � � � � 11. Future extensions of the skyway system � / �' Omust emphasize good vertical integration -�� - between the first and second levels, ^OO particularly where retail activity exists on the first level. Access � points should be well designed and O��Q O O signed to encourage vertical movement. / 12. Within areas of concentrated retail activity, we should expect and encourage ' strong activity at both street and ' skyway levels. This should include RETAIL EXPANSION SHOULD SUPPORT AND STRENGTHEN 7HE � space that opens to the sidewalk in -� MAJOR RETAIL AREAS: TOMN SQUARE/WORLD TRADE CENTER/ ; those areas where a reasonable level of � . CARRIAGE HILL AREA AND THE GALTIER PLAZA/MEARS PARK � sidewalk activity currently exists, or �EA• can be anticipated, and is compatible " " with adjacent uses. 9__� Living Place Over 3,000 people live downtown today. They i The characteristics of the population of St. .. represent a broad range of lifestyles and Paul and of the region suggest that downtown incomes. For much of this population, , can be an important frontier for new housing downtown housing opportunities are new. Al1 opportunities for the next several years. of the 640 ownership units have been built There will be considerable growth in the 34-45 � since 1980 and 28 percent of the 2,314 rental year age group over the next 10 years, an age units have been built since 1976. (Units in ' groups in which "trading-up" to new housing Galtier Plaza, under construction, are opportunities is common. While many in this included in these figures). age group are families with children to which downtown housing opportunities would not be The opportunities for an outstanding urban expected to appeal, many ere single or young residential location in downtown St. Paul are households without children for which downtown just beginning to be realized. In the Mears opportunities may be particularly appropriate. � Park area of Lowertown, a concentration of The City's population is increasingly housing opportunities is developing in an dominated by small households; and o]der environment of historic buildings, fine open individuals and couples with children no space, unique galleries, shops and restaurants longer at home make up a large share of the and at least visual access to the river. On population. the riverfront itself, a new commission is exploring what is quickly coming to be seen as Hs obsolete structures have been replaced with major development opportunity, particularly new development, the income level of downtown for residential use. The first major modern households has shifted, though not as housing development downtown was built on dramatically as might be expected. With the Kellogg Boulevard where it benefits from the use of public assistance, a substantial number river view and Kellogg Mall, the riverside of rental opportunities for low and moderate park. Additional housing can occur along income elderly and family households has been Kellogg. A large area presently provided. The units that have not been underdeveloped know as the "north quadrant" of replaced, partly because of restrictions of Lowertown is designated for residential use in the subsidy programs that have been available, the city's plans and infill opportunities are those serving non-elderly, very low income remain for housing in other locations individuals, historically a significant part downtown. of the downtown residential population. Replacement of some of the "single-room- The most important opportunity for the occupancy" units that meet this need is the imnediate future is reinforcement of the priority for the immediate future in lower identity of downtown St. Paul as a place to income housing downtown. live. No area of downtown yet has a clear identity either to residents or to the public The comnitment to meeting a broad range of generally, as a residential environment. needs in downtown housing is clear in adopted While the downtown as a whole is seen more and policies and recent development efforts. The more as a residential place for some, the loss of federal resources for lower income greatest boost to that kind of identity will housing makes it all the more important to come from a smaller area with a sufficient keep this objective in the forefront in concentration of housing opportunities and planning for expanded housing opportunities related amenities. downtown. � � ^ ,� �'° �`�'iH� A ' ,,, � f ` �rr'� •� � n��"' ,r��i.M . /r.�s � �ii ti��. . I I �,a'i: �, , , , , , , , • ��.,.. .; j .. .,, ..:: ;:. . .,., i "iyf, �..,,. .,,., � . ...�., . �:�r;y ': �. � � ��... � �IIf4dY t �y�i.i• � �� I I I` �I �Y/ 5# '' � �/�� / ..�ff�i ;/ � ra�";;i, �s ��'��'"'.r .H � .�r a . . � i ii,/ .11.�. / ,: .. ' . ,.,. ,. „i .,.,.: .l �q �� - � ,� '�� ..,.;..i ., �� :`, , ...... . ;.. , , . C;?1,° ,,,.... „ ,.,,.:,+, .Af�..w„ `� -,.: �,, •: ..� „ . . � ' ,Y/� -. — ,,,. . „ i . • ,.:, . .w�z ,,. , ___.. ,,,,, ,,, .,.,..,., .;;'?Si;H��f ,,,. .,i �....,. i 1� Living Place: Issues and Direction A. STRENGTHEN THE COhMITMENT, ENLARGE THE 6. A major priority for 1985 and 1986 is VISION OF THE RESIDENTIAL FUTURE FOR concentration of residential and related DOWNTOWN. development in an area that has strong potential for a clear identity as an 1. The current policy which supports attractive urban residential expansion of residential opportunities neighborhood. In the allocation of downtown is reaffirmed. development resources for additional housing, the city should give priority 2. Eventually, the I�lears Park area of to the Mears Park area in 1985 and 1986. Lowertown, several locations along the riverfront, Kellogg Blvd., the north 7. The Mears Park area of Lowertown quadrant of Lowertown, the north Wabasha presently represents the best area and scattered sites throughout the opportunity for achievement of the downtown should all be part of a large residential neighborhood objective. Its downtown residential comnunity. attributes include the environment created by the historic buildings; the 3. The important initiatives for the next amenity value of the river nearby; the five years to ensure a broad range of developing collection of restaurants, market-rate housing include: shops and galleries; Mears Park; and most particularly the residential . a. Exploration and articulation of the concentration already emerging and the possibilities of sites that have the large contribution that Galtier Plaza s*rongest amenity advantages. will make. b. Development of a strong residential 8. The North Quadrant, the area north of identity for some portion of the 7th Street and east of Jackson, is downtown area. designated for housing in the Comprehensive Plan. Housing remains the c. Attention to, and promotion of, the reasonable long-range objective for the amenities throughout downtown that area. The market potential for this make it attractive as a place to area can be expected to be stronger when live. a solid residential nucleus has evolved in the Mears Park area. Further d. Continuing monitoring and analysis of exploration of the market and the the market for the type of housing potential for this area is needed in the opportunities that can be provided near future. downtown. 9. Riverfront sites, particularly the upper 4. Ensure that p?ans for continued landing, the lower landing, and Harriet residential development include modest Island, represent particularly important and lower cost units that provide residential potential because of the opportunities for a broad spectrum of amenity value of the bluff sites and the the city's population and the downtown river. The important priority for the workforce. immediate future is design and analysis work to create a vision of the B. EXPANO RESIDENTIAI OPPORTUNITIES AND SECURE possibilities and stimulate interest. THE IDENTITY OF DOWNTOWN ST. PAUT AS A Residential development of riverfront PLACE TO LIVE. sites should be well underway by 1990. Additional housing on Kellogg Boulevard 5. At least 2,000 units beyond those is appropriate and would reinforce the currently under construction should be riverfront potential. added to the supply by 1990. As new development strengthens the downtown housing market, greater expansion than this may prove to be possible. 11 . 10. Housing opportunities in other locations � ��- i ❑ � downtown, in mixed use areas with I , �� ❑ reasonable amenities for residential I �� O� °D , � � use, will be important. The use of i �ODO ��0� O ' develo ment resources to support housin on scattered locations downtown as well9 j �Q��.�' ' ` � � as locations near the downtown such as I �°��O�� '�' '�� ! the United Hospitals area and the I �Go� y ,� _�. O Capitol area, need to be carefully O ` O O ti. f n evaluated for any impact on the � �OOOQOO��"'��;�,�- ' ' priorities established for the major �O OO •` �' , � , rk Ar housing sites downtown. D/� � ;+ " I � a0��0. c� O O .;;...'"' �` ..::. 11. The followin follow from current : �J,�� " . � development interest for 1985-1990: I 0 9 , ��D�QC!� � -� p� ;:;:<::>::::`t>::::: First Priority: The Mears Park area of j ��j�� Lowertown. Continued development of ; �OO e�j1;,_ ,: ::.�. O housing in the Mears Park area of � ;;;;; � / Lowertown and improvements that wi11 � QO " � ^ � � reinforce the area's residential , � C�>`>.`` ��;> ` •,� identit should occur. � � �, ,, O �-..;...:.. :::>:>:. :: � � , � Second Priority: The Riverfront. A ', / `� \ �"'...'"'Xy-� \ residential start on the riverfront � should be made during the five-year �� n°o � �� period. Hdditional housin g on Kello g g Blvd. would be a supportive step. THE MEARS PARK AREA OF LOWERTOWN IS AN OPPORTUNIT� � Third Priority: The North Quadrant. FOR DEVELOPMENT OF A STRONG RESIDENTIAL NEI6HBORHOOD Further exploration of the residential IDENTITY DOWNTOWN. RIVERFRONT SITES HAVE POTENTIAL ' potential for the north quadrant should FOR MAJOR NEM HOUSING OPPORTUNITIES. be undertaken. Deve142ment nay be indicated here as a strong market ; develops in the Mears Park area and at 13. Housing units affordable to the lowest the river. � income downtown population have been ' ' lost in recent years in the Fourth Priority: Other locations. Other redevelopment process. Some 150 � locations in the core with a reasonable additional very low cost units will more ! environment have residential infill than likely be eliminated within the potential. next 2 or 3 years. Units affordable to , i� I - - -- - -- -- --- .- � very low income households, including C. INSURE THAT CONTINUIN6 RESIDENTIAL ' single-room-occupancy units lost due to DEVELOPMENT ADDRESSES A BROAD RANGE OF redevelopment between 1985 and 1990 NEEDS. should be replaced. In addition to the units needed for replacement (estimated 12. Housing efforts downtown should attempt '; to be at least 150) the total supply , to address the entire income range should be increased by at least 100. represented by the city's workforce and ' ' its retired population as well as ; 14. Proceed with preservation and creation households displaced by new development j of additional low-cost units under the i downtown. i Plan to Meet the Housing Needs of Low- Income, Childless, Non-Elderly Persons j recently adopted. i i 12 � � Culture and Entertai nment Throughout the discussion of residential and On the other side of downtown Park Square retail functions and office space, the Theatre, small galleries and events related to importance to these markets of the variety of the active comnunity of artists in the area, activities that draw people and contribute to shops and the variety of fine restaurants a lively and inviting environment has become j provide a unique concentration of activity clear. different in character but highly complimentary to the other opportunities for This area represents perhaps the most dramatic visitors downtown. The restaurants and shops, change underway in 1985. A collection of and the cinema in particular, to be opened in cultural opportunities, nighttime activity and Galtier Plaza will expand the opportunities restaurants is emerging which represents a new here. day (and night) for downtown. The State Capitol with its related buildings The Ordway Theatre joins Landmark Center, the adjacent to downtown has always been important Minnesota Museum of Art, the St. Paul Public as a destination for visitors. Add this to Library, the Science Museum of Minnesota with the collection enumerated above, consider also its Omni Theatre, and Prairie Home Companion adjacent sites such as the Cathedral of St. to form a strong nucleus of a center for Paul, the Alexander Ramsey House, the Burbank cultural activities on the west side of Livingston Griggs House, Irvine Park, and downtown. The anticipated additions of the additional features downtown including boating remodeled World Theatre, the Northstar opportunities on the River, the City (Actors) Theatre, and the proposed History Hall/Ramsey County Court House, outstanding Center for the State of Minnesota add to this hotels and other restaurants, and it is clear area geographically and greatly expand the that downtown has immense importance as a number of visitors and variety of activity in center for visitors, a function that the area day and night. The Civic Center, strengthens every other role that downtown including the new Roy Wilkins Auditorium with fulfills and a function that deserves the great variety of sporting, cultural and considerable attention. other events, compliments the other uses in the area. •; -;� � iy , f ,,� ; .. . �,..,�� b �•�i .. � . i -_ �,�n�y,.:-� ,s��Ptfi�';J� (il�ll��6�� x'`e&�E� iiei�"te • � f�. nr �'��y�/ a, ��_. . , . , ..,.., ,. : -;.,,:. : .:�. � '.;,., . ,.. ' ,./ . � , �.,..�;,� ... � � „ -,..' . ��._. . .... ...... . . ... . i �i��r�M m nn .... ,. � E ,..,. ... ..�; � � I ±'` �y ! N � �, .,� I I �� ,:�� _ ,... ! < t`" 4 . .., � �� /+�'�, $I „ : : ^ a'S, , . , � .� � , (It � � ,��`�� / �..,� ,.� ..� %Y' . ; /.' 1 � A " 3 ��1w r i, �z/-� w�6�..H f ��±1 ,,�.::� ` �G/,l � >,;; ' " ��• "�,; � � :,�:' < :; „ , � -rn _s... �i�� , ` /,,: y .. , .i � . . � ,.. r„ ,. u ,,,.. ./. �,�: ;�. �, . , i>,•� �.,,,,qu .:.� � s � ........ . .. .. ..,:. ,/. �.,., . . � ii.�. 13 Culture and Entertainment: Issues and Direction � � i 1. Marketing and promotion efforts should take ' � greater advantage of downtown's importance ' as a vi si tor center. jOCI_1 �I�"l U oL/ oQ�� I 2. First-rate museums are a particularly �� ,ns e � '��❑� i strong part'of downtown cultural j�U��' O �O °O�p attractions. This function can be �in��0�DO�\ O O o0� � expanded. The history center proposed is a Q� _ significant addition as is the botanical J��° `�0�000�� ,� ` garden under discussion. Riverfront ODO G�v°O jo��°� � development should include a major visitor � �'C > OO ��GG n .Cu/ •� attraction of this type. �,�, ? �p � O � ilies �f1 d �� 3. Mutual reinforcement is an important goal. • �' aL- � tles�\�� Parking, circutation possibilities, �G '� :� rocU p r o m o t i o n a l e f f o r t s, c o o r d i n a t i o n o f C�,/�C; - �/� � � activities and hours, and design of /��D��,J� n� �`� \ �� Cu/!nr% Enitrloinm�M i d o wnt o w n sp a c e s a n d a m e n i t i e s sh o uld t ak e ?�O�DQ� �C ��,;�or oss►ino�ia, M � every opportunity to encourage multi- �n� n�"' aC�n��. purpose visits. Improved signage is needed �� ; � RsslouronJ Loeol/ona on routes that connect major destinations � with each other and with parking �-.� aiowsReprerenllmporlon/ ? Circn/otion on0 Y'suo/Conn�eJions f dC 1�1 L 1 e5• � �� . � riM Exlsling ond Fufurt Aclivifiss '� � ond Fealuros 4. Linkages need strong emphasis in further � planning: linkages between visitor THE WESTERN CONCENTRATION OF VISITOR ATTRACTION '"• attractions and between these and other INCLUDES THE RICE PARK AND NORTH WABASHA/MORLD TRADE • activity centers. Pedestrian ways, CENTER AREAS. SEVENTH PLACE IS AN IMPORTANT LINK. landscaping and open space features need to GOOD VISUAL, PEDESTRIAN AND VEHICULAR CONNECTION provide a strong sense of connection. WITH THE STATE CAPITOL, A MAJOR VISITOR DESTINATION ` 5. The special function of the f�lears Park area FOR THE STATE, IS I!lPORTANT. of Lowertown as a center for artists and EVENIN6 ACTIVITY WILL INCREASE SIGNIFICANTLY IN THE arts-related activities is important and LOWERTOWN AREA WITH THE OPENING OF GALTIER PLAZA AND should be supported. ITS CINEMA. RIVERFRONT OPPORTUNITIES MAY BE PARTIC- ULARLY IMPORTANT FOR ADDITIONAL VISITOR ATTRACTION IN 6. Convenience, liveliness and safety at night THIS AREA. are essential for the new concentration of cultural and entertainment opportunities downtown. Improved lighting is needed both for pedestrian convenience and for the contribution it can make to the character of special features and space. '�;��' F' �.i .. 14 Circulation and Paricing Circulation and parking systems serve the dual �''. People who come downtown for shopping and purpose of moving people into and around the ; professional services may be relatively downtown. Auto and transit routes provide ' infrequent visitors and require logical access into the downtown and pedestrian paths ' connections from regional roads into the provide for movement within the central core. ', downtown. Short term visitors rank The availability and low price of parking is convenience as the most important factor in one of downtown's most important assets. It the parking decision; close-in parking in the needs to be more effectively promoted. The central core supports retail and service existing downtown parking system has activities. Again, although existing approximately 24,300 spaces to serve all f acilities provide adequate parking for most users. Upon completion and occupancy of visitors, expected growth in retail and expected downtown development through 1990, service activity in the World Trade Center and parking demand is estimated at 28,000 spaces Lowertown areas will create short term parking during the weekday. This will result in an demand that will outstrip the present supply. overall shortage of 3200 spaces. The downtown is also a growing nighttime Downtown office workers are major users of the destination for restaurant and entertainment downtown circulation and parking systems. activities. Parking facilities sited for Major regional roads, including I-94, I-35E daytime u$e can be shared in the evenings for and Shepard Road bring office workers into the nighttime use. Clearly signed skyways with downtown. Facilities in and around the consistent hours will promote evening downtown core provide parking for downtown pedestrian activity downtown. workers. hiajor downtown streets and parking facilities are generally adequate to serve Transit serves both office workers and existing demand. In the near future, however, shoppers. The current pattern of transit expected development will create a need for service concentrates transit routes on a few additional parking spaces. Parking demand streets that directly penetrate the highest will be especially high in the World Trade concentration of retail and office activity. Center/Town Square and Lowertown areas. These streets include Fourth, Fifth, Sixth, �..,�,�� Cedar and hiinnesota. This high level of � convenience for transit users helps reduce ��a�� congestion on remaining streets, and � `` �•.... ` encourages greater transit ridership. � ' � _.` _....i �;.;�� ,_� ��',� �k� �� `i� � 4�: `ll I",�.�` a �.;y��a '��k��'i , � -�.. \ i � ��`�`.�`��..��r��Y '�` . �.• .,�� ?� � A \�� .. �.��Y�a��,�� , '�a �.��a �� .:' �,;. .�:: � � ` '�"r".'�w� ' `� � 3 � ��a�;;:s .. � ENTER x x� � � a9n�n F%"� , ..°Qi�.�w' .,s��.,�. ,..:...<ia . ... �.v......,»�,....xs,§+�!�.`�/o�..�'�...nEw;.,ro��X�si�.xm�,>„�..r� w �,,.,� . 15 Circulation and Parking: Issues and Direction A. INP ROVE ACCESS INTO THE DOWNTOWN 5. High nighttime parking demand will exist in the Itice Park and Lowertown 1. New exit ramps off of I-35E and I-94 areas. Nighttime demand should be should be designed to insure a logical served by sharing facilities built for transition from the highway into the daytime parking. A parking facility at downtown. Existing exits should be the west end of the downtown should be clearly signed to indicate downtown located to serve both the World Trade destinations. Center/Town Square area and Rice Park. A Lowertown parking facility should 2. Transit usage should be encouraged by serve evening restaurant and theatre . continuing to concentrate bus service on trade. downtown streets that serve retail and office activity. Sheltered waiting 6. Most new parking facilities are areas at major stops should be developed with some public assistance. developed. In order to insure a parking system that is well coordinated with the system of 3. Promote the regional LRT system which streets and activity, the city should will provide faster, more efficient expand its role as a parking facility service for many riders and will greatly developer. improve service to and from the downtown. B. IMPROVE ACCESS WITHIN THE DOWNTOWN 4. By 1990, an additional 3200 parking 7. Complete skyway connections between spaces witl be needed. The two highest ' major parking facilities and demand areas include Lowertown and the retail/office centers. World Trade Center/Town Square complex. Facilities should be built on sites that will meet the parking demand in these areas. .�,� L� .-_�. 00 0�� 0 u� \ o � '��0'� � � 0��0 � � �� O �. C� O� �" °�oo � . ; �� 0��0� O � �i,��2`�G��DO � o0 � �o`OOO �n ` �� o � � � e� emond �� D° ' �� a � � � , .-„� ° �e �� %O�� Y< < 0 �� ,�GG�� , � �.�'uoo='�' ��;;� �0 - �� ; 00�� 0��0 � '�� , OQd��O� � �o v I �4 �;/ , ,� �,��- �. � ; �� , i � �� \ ,, A � � j j � , � !� �' i��a� �I � 16 i I 8. Promote use of the skyway system by 11. Within the Mears Park and Rice Park insuring that skyway hours are area, the street level pedestrian consistent with circulation needs for environment and street level pedestrian the variety of uses connected, and that activity are particularly important. clear signage and security provide a While skyways may be needed for some non-threatening trip. purposes in these areas, they should not . have the predominance that they do in 9. New parking ramps should be located on the core area. Street level circulation major streets at the edge of the should be empahsized in planning for downtown core to intercept traffic these areas. before it enters the core. New ramps should be large (over 1000 spaces), easy C. ENABLE THROUGH TRAFFIC TO BYPASS THE to find, and clearly identifiable as a DOWNTOWN CORE public place to park. At the same time, new parking ramps should be sensitive to 12. Reduce through traffic in the core by and complement surrounding buildings and developing an efficient "ring-route" activity. around the downtown. This means building the East CBD Bypass, improving 10. Increasing activity in Lowertown, Rice the Shepard-Chestnut Interchange, Park and other areas near the central completing the I-35E Parkway and downtown core require special attention. reconstructing Shepard Road. Unlike the central core, these areas may I - � not be best served solely by additional pedestrian connections. Further ' investigation is needed to determine the � � � best mix of pedestrian/vehicular service s�,� N " LL for these areas. s* pyE. �� E 8 � � � N � S � � � I-9� i � Q� O � ST ' S1 9 a,�OO � � �'�� f �m � � 1�' p ', dJ m � _,�(C-Q4� CfOR(3E $Z C� � i ,z w � N sr � � � �' W �¢ � f � I S�P = � � � � �p. j _ _ _ _ u w a�NnP O�iS S�f. 1�j 'n E nrMnPOLS Si _'_'_ , 1 17 Open Space Rice Park, Mears Park and Kellogg Mall are Employees and visitors use the parks to rest frequentty cited as features that are or eat lunch; the major public parks are also essential to the special character of downtown used for annual festivals: The Mayfest at St. Paul. The Capitol area to the north and Rice Park, the lowertown Art festival in Mears the river to the south are open spaces Park, and the Winter Carnival. Town Square important to the form and quality of downtown. Park, being indoors, is used for a variety of Open space downtown is critical for its use public purposes, as well as private receptions for rest and recreation, for the major and parties which bring in revenue for the contribution it makes to the distinctive city. character of special areas, for the • connections it can create between areas and Rice Park, Mears Park (formerly Smith Park), for the form that it gives to the entire and Kellogg Mall have been in existence since downtown area. before the turn of the century. Town Square Park was completed in 1980. During 1934, Rice Park underwent a major renovation. Proposed in the next few years are similar improvement projects for Mears Park and Kellogg Mall. ; < .,: .: .� ,,. .. , � . ," <:: . - ,': �;�� ,� , , f 3'ql`� ° �IV�roti �r�; �,��ti� �I � : � I � :��,� =� , . .� u � - �`% � a��q°" �� .�.,, % � � �4 ... �.r�'in �, . °� �. � ( �� '�7y _ � 'y 1 i ... , :., ' ... .. t I y T � �. �.y L . �..' L�I�1 ,� �.£4s��r�. ' i11 '� � .>,y �: �'! �M� '.. J: I":� + � !'�` �,. �� y. ... � :�`51' :.�reYr s ,:��.,, �� Parks and plazas within downtown proper -� include: Parks Designated parks and plazas do not constitute Rice Park all of the important open space. landscaped Mears Park pedestrian areas such as the spaces in front Kellogg Mall of the Minnesota Mutual and Federal Courts Town Square Park buildings and the sidewalks themselves become part of a system that connects and gives form Plazas to the district. Qoth the capitol mall and the river corridor itself are major parts of Seventh Place P1a11 that system. Capitol Centre Plaza Osborne Plaza 0'Shaughnessy Plaza Hamm Plaza St. Paul Companies Plaza Minnesota Federal Plaza Arts & Science Center Sculpture Garden Plaza above Adult Detention Center Fourth & St. Peter Corner Park American Center Building Public Library Lawn 18 • � Open S�ace: Issues and Direction A. PLAN FOR OPEN SPACE improvement, of this two-block stretch of Seventh Place is needed. This 1. Some concerted planning for open space improvement should have some priority downtown is needed, a much more because of major current and planned comprehensive effort than could be investments in these blocks• undertaken within the scope of this framework. The planning needs to 3. Kellogg Mall should be improved. The include: park which tops the river bluff on downtown's south edge between Wabasha a. An assessment of open space that now and Robert Streets is an important exists including identification of landmark. Park benches, railings, walks large and small spaces, public and and some of the landscaping should be private, a determination of their replaced, as proposed by the Division of function and evaluation of Parks and Recreation. Near-term effectiveness; development potential that would impact this park directly as identified by the b. A plan for the role of open space Riverfront Commission needs to be taken elements as a network that links into account in the timing of this major features and activity centers improvement. downtown, that links important adjacent areas and that highlights 4. �4ears Park should be improved. This natural geographic features and helps focal point for the Lowertown area was to give meaningful form; , rebuilt in the early 1970's but many feel that the park does not function c. An identification of open space needs well with the extensive brick paving and in areas of anticipated development; other features of the reconstruction. The park is critical to the residential, d. Guidelines for continued development entertainment shopping potential for of open space which addresses such this area. Its strengths and defects concerns as sunlight and seating and should be analyzed and appropriate requirements or incentives for corrective measures undertaken. private plazas; e. Recommendations on management 0 �[��\ �;��?'Mo/or open spote in oddifion/o concerns that effect the useful ness �� y'"��;�o �heriver coriidor ilss/l of open space; dfld �:Areo ?�%?� Aieos of/ike/y expansion � I ,� `•`:�.......:�:� need ond opporluniJy f. Identification of the priorities for � Ovv�' �`V�oO"�/%�', improvement. -� �'� � ��%� _ ' � 'YP�w�i�. o��G��o�� B. IMPROVE OPEN SPACE � ��O��j�� ,, -\ �O Qo C�� . �;��,� ' �y It is not possible to be as clear as would �� "'� � be desirable about irtmediate priorities for jO�C}�:::: . O�O�OO ��'�'��^`S•\`� � �/;;:;:i' ^''> D �O� /� im rovement of o en space without a more » :::-� O�� ` P p ...'. � °°'i��✓"��!'^��,`'n'<s`::,'<� comprehensive assessment. Some obvious ,. needs, however, have a clear relationship ' 0�� R� ODO.`',-� �,� ., ^ � to objectives established in this plan for , O�O( � � _ �� ,y � ��" � ��, �:>.>.:><'�' ... � \ making the most of our strong assets, ; �� ,; �� / �.::::��'.�` �� !� strengthening a residential environment in ; � Q O� .• � the Mears Park area of Lov�ertown, and ,a�QQ�v� � '"�'��Y �� encouraging interest in the riverfront. '� � �00�� .�� "��,j \ /^-� , v ' �� , i / � �.\��,, � 2. Seventh Place east of Town Square should � , � be improved. It is likely that this I �`':',.'' s°�"`• � ,� ':�, ' portion of Seventh Place will not have a ; � � sufficient amount of retail activity at ' � �� the street level to warrant devoting al1 �� ,�.' / � '��'�"��' ��A " � of the space to pedestrian use in the Mp�OR OPEN SPACES HELP GIVE MEANINGFUL FORM TO THE near future. Yet the temporary DOWNTOWN AREA AND CONTRIBUTE TO THE CHARACTER OF improvements still in place, and the , SPECIAL AREAS WITHIN. AREAS OF EXPANSION AND IM- present configuration of the Street as a ! PROVEMENT NEED INCLUOE THE RIVERFRONT, THE CONNECTION parking area are not adequate. � TO THE CAPITOL AREA, THE CATHEORAI HILL AREA AND THE Improvement, at least visual EASTERN PORTION Of SEVENTH PLACE. 19 Urban Design It is clear that open space issues outlined in this report are part and parcel of the urban design issues addressed here. They are presented separately in order to give the required emphasis to the special concerns of open space and to suggest that the open space system can be addressed without completing work on all other urban design concerns identified. That may prove to be the most practical way of getting early results. ' TLikewise, the lighting plan mentioned here could be one element of a rnore comprehensive urban design study. The recomnendation is that a "quick study" of lighting needs to be completed because this is an area where action can and should be taken with the benefit of some forethought, but without waiting for the more comprehensive assessment of the broad range of urban design issues. . Urban Design: Issues anci Direction ` '`1. Comprehensive urban design work is needed 2. A quick study of lighting possibilities and for downtown. A study should be initiated priorities should be completed. The study in 1985 with appropriate professional should determine the types of lighting most assistance and with participation of the appropriate for different portions of the downtown cortmunity and the city as a whole. downtown, identify the highest priorities The study needs to address: for immediate action on lighting improvements, and provide creative A. the primary determinants of the form of suggestions for innovative use of lighting the city center: overall relationships to highlight the characteristics of special and connections, vistas and edges, places downtown. special features and places; the means for enhancing the contribution these make to the character and quality of downtown; - B. individual elements that recur �•. throughout such as sidewalks, street furniture, street-level facades, skyway bridges, signs, setbacks, trees, small plazas; and C. the process through which the design objectives are cortmunicated and renforced in the development process and the means for improvement. 20 ��T7�+ GITY OF S►AINT PAUL ��'(- �j� �, , �+ � �y OFFICE OF THE MAYOR - G O • .� :< liii�li�ll a' 2m �° 347 CITY HALL +ea• SAINT PAUL, MINNESOTA SS102 GEORGE LATIAiER (612) 298-4323 - MAYOR - November 14, 1985 Council President Victor Tedesco and � Members of the CitX Council . 719 City Hall Saint Paul, Minnesota 55102 Dear President Tedesca and Members of the City Council: Enclosed is the Downtown Framework adopted by the Planning Commission and recommended as an amenctment to the Comprehensive " Plan. � . This plan is the result of an effort by the Planning Commis�ion, the Chamber of Commerce, the Downtown Community Development Council, the Downtown Council, and the St. Paul Building Owners � and Managers Association �o establish consensus on some basic directions for downtown development for the 1985-1990 period. The shared outlook which this planning has helped to bring about will enable us to move forward in an efficient, cooperative effort to � continue to realize more of downtown's potEn�ial. I recommend that the Courlcil consider the plan carefully with a presentation from staff and the Downtown Framework Task Force, hold a public hearing, and proceed with adoption as recommended by the Planning Commission. Very tru .yours, 4 er May r , GL:lm Enclosure cc: David McDonell � Peggy Reichert . < ..�<a � � C� �^9`� city of saint paul _ planning commission resolution f ile number 85-83 . �te October 11 . 1985 _ WHEREAS, The Planning Commission of the City of St. Paul agreed to join with the Chamber of Commerce, the Downtown Council, the Downtown Coummunity Development Council, and the St. Paul Building Owners and Managers Association to create a framework of policies for development in downtown St. Paul over the 1985-1990 period; and . WHEREAS, the Downtown Framework Task Force with representatives of the sponsoring agencies has completed its work and has recommended "Downtown St. Paul: Framework for Development 1985-1990" to the planning commission for adoption; and WHEREAS, public hearings were held on July 12 and October 11, 1985 at which the planning commission considered the recommended Framework; and WHEREAS, at said public hearings and during the period of public review which preceded them, the public, the planning division staff, and planning commission members were given the opportunity to discuss and review the framework; and WHEREAS, the economic development committee has recommended modifications to the Framework in response to comments received at the hearing and during the community rcview period and now recommends adoption of the Framework as an amendment to the Comprehensive Plan for the City of St. Paul; NOW, THEREFORE, BE IT RESOLVED, that the Planning Commission of the City of St. Paul hcreby recommends to the City Council adoption of Downtown St. Paul: Framework for Developmerit 1985-1990, with recommended modifications to the comunity review draft, as an amendment to the Comprehensive Plan for the City of St. Paul, subject to approval by the Metropolitan Council, and BE IT FURTHER RESOLVED, that the Planning Commission express by letter to the Chamber of Commerce, the Downtown Covncil, the Downtown Community Development Council and the St. Paul Building Owners and Managers Association its appreciation for this joint effort and its desire for continued cooperative effort to implement the recommendations of the Framework. moved by Mr. McDonell `��d � Ms. Treichel in favor unanimous voice vote against-