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281114 N�HITE - CITV CLERK COURCll �' PINK - FINANCE G I TY OF SA I NT PAU L �'✓�� CANARV - DEPARTMENT BLUE - MAVOR File NO. � Counci Resolution Presented By � Referred To Committee: Date Out of Committee By Date WHEREAS. a municipality may pursuant to Minnesota Statutes �462.353 carry on comprehensive municipal planning activities for guiding the future development and improvement of the municipality; and WHEREAS, the Council of the City of Saint Paul may pursuant to Minnesota Statutes �462.355 adopt or amend a comprehensive plan or portion thereof after a recom— mendation by the Planning Commission; and WHEREAS, the City Council upon the recommendation of the Planning Commission has heretofore adopted as portions of the comprehensive plan the plan for District 14 and the plan for District 16; and WHEREAS, the Planning Commission has found the Grand Avenue West Task Force Parking and Zoning Report and the Grand Avenue Design Guidelines consistent with the policies and objectives of the St. Paul Comprehensive Plan; and WHEREAS, the Planning Commission has recommended adoption of the two reports as a Plan for Grand Avenue and as an amendment to the District 14 Plan, and that a summary of the Grand Avenue Plan be added to the text of the District 14 Plan; NOW, THEREFORE, BE IT RESOLVED, that the Council of the City of St. Paul does hereby adopt the Grand Avenue West Task Force Parking and Zoning Report and the Grand Avenue Design Guidelines, copies of which are attached hereto, as a Plan for Grand Avenue to be incorporated into the City's comprehensive plan as part of the District 14 Plan subject to such review by the Metropolitan Council as may be required by law; and BE IT FURTHER RESOLUED, that the summary of the Grand Avenue Plan attached hereto be added to the text of the District 14 Plan; and ,, BE IT FURTHER RESOLVED, that the Grand Avenue Design Guidelines also be incorporated into the District 16 Plan and that the summary of the Grand Avenue Design Guidelines attached hereto be added to the text of the District 16 Plan. COU[VCILMEN Requested by De rtment of: Yeas Nays � � Fletcber ceu� In Favor Masanz —1 Nicosia 6!' s�i�a _ Against BY 7edesco Wilson Adopted by Council: Date N�V 3 1983 Form Appro by City Attorney Certified Pa s by Council et y BY By t#p o by ;Navor. t y�� ` � App y ayor for S m sibn to Council B PUBLISHED NOV 12 1983 � . _ 2�1114� � � � TRANSMITTAL - MESSAGE SLIP . TO wG►noN Mike Sirian City Clerk's Office a►� � 10/27/83 � 10:20 a.m. FROY LOCATION . �Jane Chada oimcilman Fletcher's TRANSMITTAL ACT10N CALL OR VISIT f• Review and see me NAME Review and rotum Propare reply for my sip. FROM Reply and send me copy For your approval PMONENO. For your information - For signature Called As we discussed ' Wos here to see you As you requested Please eoll Toke appropriate action � Will call a9oin Notify staff Returned your call MESSAGE �e attached should be listed on the Council agenda for scheduling of a public hearing date of Novanber 15 only. We'd like to get it on the Thursday, Nov. 3, agenda if possible. If you have c{uestions, call me. r�--��-:�� Admin 1010(Rev. 9-76) �9,� g� O'V6t� {.......a_y�i�..ra� I , , �� GRAND AVENUE PLAN . 3. OPPORTUNITY FOR COMMERCIAL SUMMARY GROWTH shouid be in the fairly defined � existing commerciai ciuster areas. The The Grand Avenue P1 an i s composed of western ten Iots on the south side of two separate reports: the Grand Avenue the biock between Fairview and HoweII West Task Force Parki n and on i n Re ort shouid be rezoned from B-2 to B-2C� . and t e rand Avenue Des i n Gu i del i nes. in order to provide for commerciat ex- The Plan imp ements the recommendations pansion white protecting the residential � for a detai led study of Grand Avenue character of the biock. contained in the District 14 Plan adopted in 1979. • 4. THE HIGH WINDS BLOCK (bo�tn.ded by MacalesLer, Grand, Cambridge and The Grand Avenue Plan sets out a desirable Sl.cmmit), if it is redeveloped, should long range land use direction for Grand be rezoned to PD. The development Avenue. It makes specific recommendations should contain at teast as much com- for improvements in parking, zoning, merciai space as now exists, and a parking and design to take the Avenue in that ramp that is large enough to heip provide direction. parking for� the businesses on the south � side of the street as weIl as adequate The Grand Avenue Plan, in its entirety, parking for the new commercial and is an amen ment to t e District 14 Plan. residentialspace. The following is a summary of its main � points. 5. THE PD PLANNED DEVELOPMENT . AREA REQUIREMENT shoutd be changed from 3.5 acres in size to 1.5 acres in Grand Avenue West Task Force Parking size. ' and oning Report 6. SIGN REGULATIONS FOR THE B-2C L A 40 ACRE STUD.Y of Grand Avenue DISTRICT shouid be changed to contain West, from the Short L-ine to Cteveland sign restrictions similar to B-1, to pro- Avenue, shouid be initiated to rezone hibit pole signs, and to require that sign property in accordance with the recom- iliumination be operated only until one mendations of the District 14 and Land hour after the close of a business day. Use eiements of the City's Comprehensive . Pian, and the more specific recommendations ?. THE GRANDVIEW THEATER shoutd of this report. work out a maintenance agreement in order to use the Minnesota Federai 2. PREDOMINANTLY RESIDENTIAL AREAS parking iot on evenings and weekends, should remain so. The B-2 zoned res- when Minnesota Federal is closed and idential area on the north side of Grand the Grandview has its peak hours. east of Cieveland shouid be rezoned to RM-2. The B-2 zoned apartment 8. WHEN A NEW OR MORE INTENSNE buildings between Cambridge and Fairview USE of any buiiding or premises gen- should be rezoned to RM-2. erates increased demand for parking, . . � the Zoning Code shouid require the . provision of additionai parking. Parking . shouid be required for outdoor restaurants. ,,r . �` I . �V�� 9. THE LEGAL NONCONFORMING AND 6. A COORDINATED DESIGN PLAN should SHARED USE STATUS OF COLLEGE be developed by crn architect for each PARKING should be determined by Lhe . of the major commerciat nodes. A mem- Pianning Commission. : orabie unif ied visuaI image shouid be deveioped f or each node through the 10. THE COLLEGE PARKING REQUIREMENT use of repetitious eIements: buiidfng tn the Zoning Code is reasonable and materiais, colors, awnings, the proportion shoutd be enforced. Buiiding permits of window openings, and sign Iocations. for new buildfngs, or for the enlargement or increased intensity of use of existing 7• A BUILDING FACADE ELEVATION �buildings, should not be issued unIess shouid be reviewed along with a site this parking requirement is met. plan when a new facade or change in an.existing facade is part of a project requiring site plan review. Grand Avenue Design Guidelines 8. SIGNS on Grand Avenue shouid provide 1. PEDESTRIAN ORIENTED DECORATNE clear identification for the businesses LIGHTING shouid be u.sed to highlight on the Avenue, reinforce the positive the major commerciai nodes at Cambridge image and identity of the Avenue, and nnd Fairview. refiect the pride businesses take in the area. 2. TREESshouid iine the Avenue for its entire Iength, inciuding the commercial 9. A SPECIAL DISTRICT SIGN PLAN, with areas where trees are currently missing. design provisions that buiid upon the unique character and identity of the 3. A GRAND VILLAGE NPP PROJECT Avenue, shouid be adopted for Grand f or lfghting, street tree, parking, f acade, Avenue. ' _ and sign improvements shouId be �.inder- taken by GABA and High Winds. 4. SHARED USE OF PARKING LOTS should � be encouraged for new and underutiiized existing parking iots. The Minnesota FederaI parking 1ot shouid be used by the Grandview Theater in the evening. 5. THE LOCATION OF PARKING LOTS shouid be at the side or rear of commercial ' structures and have a minimum number of curb cuts. Access to parking 2ots on corners shouid be from the side street. E�cisting c�rb cuts withire 30 feet of an intersection shouid be ciosed. � , � . � ��11�.� GRAND AVENUE DESIGN GUIDELINES �, A BUILUING FACADE ELEVATION SUMMARY shouid be revieu�ed aiong uiLh a site pian ��hen a nek� facade or chQnge in The Grand Avenue Desi gn Gui del i nes, arz existing racade is part o/' a project in its entirety, is an amendment to requiring site pian revie�o. the District 16 Plan. The following is a summary of its main points. 8• SIGNS on Grand Avenue shouid provtde ciear identification for the �usinesses 1. PEDESTRIAN ORIENTED DECORATNE on the .4venue, reinforce the positive LIGHTING shouid be used to highiight image and identity of the Avenue, and . the major commercial nodes at Grotto, reftect the Pride businesses take in the Victoria and Lexington. ' area. 2. TREES shouid iine the Avenue for its 9• A SPECIAL DISTRICT SIGN PLAN, with erttire iength, including the commercial design provisions that build upon the areas where trees are currentiy missing. unique character and identity of the Avenue, shouid be adopted f or Grand 3. COMMERCIAL NODE NPP PROJECTS Avenue. at Grand and Grotto and Grand and Lexington, f or lighting, street tree, . parking, facade, and sign improvements, . � should be undertaken by GABA. . 4. SHARED USE OF PARKING LOTS should be encouraged for new and underutilized existing parking lots. The Muska Lighting parking lot should be used by other bus- inesses in �the evening. _ 5. THE LOCATION OF PARKING LOTS � shouid be at the side or rear of com- mercial structures and have a minimum . number of curb cuts. Access to parking lots on corners should be from the side street. Ezisting curb cuts within 30 � - . feet of an intersection shouid be ctosed. 6., A COORDINATED DESIGN PLAN should � be developed by an architect f or each of the major commerctai nodes. A mem- orabie unified visuai image shouid be deveIoped f or each node through the . use of repetitious elements: building materfals, coiors, awnings, the propor- tion of window openings, and sign Iocations. � � ' >�. CITY OF SAINT PAUL �� .t : OP`FICI� OF TFLI� CZTY COIINCIL . �_ :.....;, ';:::�.".�6 D a t e ; October 27, 1983 , -M�- s : �r COMMITT � E RE PORT TO = SQ�nt PQU I Cifiy Council F R O M = G o m m i t t e e o h CITY DEVELOPMENT F, TRANSPORTATION � C H A(R Councilman Bob Fletcher � . Letter of the Mayor transmitting Planning CoirHnission report and recorrunendation for Grand Avenue Plan Amendment and Grand Avenue District Sign Plan, and resolution approving adoption of the Grand Avenue West Task Force Parking and � Zoning Report and the Grand Avenue Design �iidelines. At its meeting of October 26, 1983, the City Development Committee recommended approval of the attached resolution AND further recammended the resolution be laid over to November ,l5, 1983, for public hearing. i . ; � 1 . . � • � � � CI'I'Y HALL SEVENTH FLOOR SAINT PAUL, MINNESOTA 55102 ,�,.„ • �� ^�� CITY OF SAINT PAUL =�+``.., ,,�;,,4 ;� �► s=, OFFIC� OF THE CITY CLERK �, a, =� iii�iii ii �' ,,,.+ �� ALBERT B. OLSON, CITY CLERK '��, = o,,,�im�.�o�.��'� ��C��/�� 386 City Hall,Saint Paui, Minnesota 55102 � 612-298-4231 GEORGE LATIMER MAYOR OCT 12 �963 COUNClLMAIV RUBERT FLETCHER October 11, 1983 Councilman Robert Fletcher, Chairman City Development & Transportation Committee Room 722 City Hall � Dear Councilman Fletcher: � The City Council today referred to the City Development and Transportation Cormmittee for consideration and re.commendation the letter of the Mayor transmitting the Planning .Commission report and recommendation for a Grand Avenue Plan Amendment as an amendment to the District 14 Plan and for a Special District Sign Plan for Grand Avenue. Very truly yours, ��•Y� Albert B. Olson City Clerk ' ABO:drm ,, . �O . -� �� i GRAND AVENUE PLAN 3. OPPORTUNITY FOR COMMERCIAL SUMMARY GROWTH shoutd be in the fairIy defined existing commercial cluster areas. The The Grand Avenue Plan is composed of western ten Iots on the south side of two separate reports: the Grand Avenue the block between Fairview and Nowell West Task Force Park i ng and on i ng Report shouid be rezoned from B-2 to B-2C� and the Grand Avenue Des i n Gu i de 1 i nes. fn order to provide for commerciai ex- The Plan imp ements the recommendations pansion while protecting the residentiai for a detai 1ed study of Grand Avenue character of Lhe biock. � contained in the District 14 PTan adopted in 1979. 4. TNE HIGH WINDS BLOCK (bo�.uided by Macatester, Grand, Cambridge and The Grand Avenue Plan sets out a desirable S�.cmmit), if it is redeveioped, should long range land use direction for Grand be rezoned to PD. The development Avenue. It makes spec i f i c recommendati ons should contain at Ieast as much com- for improvements i n park i ng, zon i ng, mercial space as now exists, and a parking and design to take the Avenue in that ramp that is large enough to heIp provide d i rec t i on. parking f or the businesses on the south side of the street as welI as adequate The Grand Avenue P1 an, i n i ts ent i rety, parking f or the new commercial and is an amendment to the Qistrict 14 Plan. residential space. The following is a summary of its main points. 5. THE PD PLANNED DEVELOPMENT ' AREA REQUIREMENT shouId be changed from 3.5 acres in size to 1.5 acres in � Grand Avenue West Task Force Parking size. - and Zoning Report 6. SIGN REGULATIONS FOR THE B-2C 1. A 40 ACRE STUDY of Grand Avenue DISTRICT should be changed to contain West, from the Short Line to Cleveland sign restrictions simiiar to B-1, to pro- Avenue, shouid be initiated to rezone hibit poIe signs, and to require that sign property in accordance with the recom- iItumination be operated only untii one mendations of the District 14 and Land hour af ter the cIose of a business day. Use etements of the City's Comprehensive Ptan, and the more specific recommendations 7. THE GRANDVIEW THEATER shouid of this report. work out a mnintenance agreement in order to use the Minnesota Federai 2. PREDOMINANTLY RESIDENTIAL AREAS parking Iot on evenings and weekends, shouid remain so. The B-2 zoned res- when Minnesota Federai is ctosed and idential area on the north side of Grand the Grandview has its peak hours. east of Cieveland shouid be rezoned to RM-2. The B-2 zoned apartment 8. WHEN A NEW OR MORE INTENSNE buiidings between Cambridge and Fairview USE of any buiiding or premises gert- shouid be rezoned to RM-2. erates increased demand for parking, the Zoning Code shouid require the provision of additional parking. Parking shouid be required f or outdoor restaurants. 9. THE LEGAL NONCONFORMING AND 6. A COORDINATED DESIGN PLAN shouid SHARED USE STATUS OF COLLEGE be deveioped by an architect �or each PARKING shouid be determined by the of the major commerciai nodes. A mem- Pinnning Commission. ; orabie unified visual image should be deveioped f or each node through the 10. THE COLLEGE PARKING REQUIREMENT use of repetitious elements: buiiding in the Zoning Code is reasonabie and materials, coiors, awnings, the proportion shouid be enforced. Buitding permits of window openings, and sign iocations. for new buildings, or for� Lhe eniargement � or increased intensity of use of existing �• A BUILDING FACADE ELEVATION buildings, should not be issued unless should be reviewed along with a site this parking requirement is met. pian when a new facade or change in an existing facade is part of a project requiring site pian review. Grand Avenue Design Guidelines 8. SIGNS on Grand Avenue should provide 1. PEDESTRIAN ORIENTED DECORATIVE ciear identificaLion for the bu.sinesses LIGHTING should be used to highlight on the Avenue, reinforce the positive the major commerciai nodes at Cambridge image and identity of the Avenue, and and Fairview. reflect the pride businesses take in the area. 2. TREES shouid line the Avenue for its entire length, inciuding the commercial 9. A SPECIAL DISTRICT SIGN PLAN, with areas where b•ees are currentty missing. design provisions that buiid upon the unique character and identity of the 3. A GRAND VILLAGE NPP PROJECT Avenue, should be adopted for Grand � f or iighting, street tree, parking, f ncade, Avenue. • and sign improvements shouid be under- taken by GABA and High Wiruis. 4. SHARED USE OF PARKING LOTS shouid be encouraged for new �d underutiiized existing parking lots. The Minnesota Federai parking lot should be used by the Grandview Theater in the evening. S. THE LOCATION OF PARKING LOTS should be at the side or rear of commercial structures and have a minimum number of curb cuts. Access to parking iots on corners shouid be from the side streeL. Existing curb cuts within 30 feet of an intersection shouid be ciosed. , � �$� �i y� GR,AND AUENUE DESIGN GUIDELINES 7, A BUILUING FACAGE ELE1'aTIpN SUt�1MARY slzouid be revieu�ed atong u�ith a site plan ��hen a n�l,� facade or cnange in The Grand Avenue Design Guidelines, an existing racade is par,t of a project in its entirety, is an amendment to requiring site pian review. the District 16 Plan. The following is a summary of its main points. 8. SIGNS on Grend Avenue shouid provide cIear identi f ication f or the businesses 1. PEDESTRIAN ORIENTED DECORATNE on the Avenue, reinforce the positive LIGHTING shauid be used to highiight image and identity cf the Avenue, artd the major commercial nodes at Grotto, refiect the pric�e businesses take in the Victoria and Lexington. ' area. 2. TREES should Iine the Avenue for its 9. A SPECIAL DIS'IRICT SIG�'V PLAN, with entfre tength, fncluding the commercial desfgn provisions that buiid upon the areas where trees are currentIy missing. �ique character and identity of the Avenue, shouid be adopted f or Grand 3. COMMERCIAL NODE NPP PROJECTS Avenue. at Grand and Grotto and Grand and Lexington, for lighting, street tree, . parking, facade, and sign improvements, shouid be undertaken by GABA. _ 4. SHARED USE OF PARKING LOTS shouid be encouraged for new and underutilized existing parking iots. The Muska Lighting parking Iot shoutd be used by other bus- inesses in the evening. . 5. THE LOCATION OF PARKING LOTS � should be at the side or rear of com- mercial structures and have a minimum number of curb cuts. Access to parking lots on corners should be from the side street. Existing curb cuts within 30 - f eet of an intersection should be closed. 6., A COORDINATED DESIGN PLAN shouid be deveioped by an architect f or each of the major commerciai nodes. A mem- orabie unif ied visual image should be deveioPed for each node through the use of repetitious eiements: building materials, coiors, awnings, the propor- tion of window openings, and sign locations. \ I � D � � � � D � � � GRAND AVENUE WEST TASK FORCE PARKING AND ZONING REPORT � � PURPOSE This report represents a comprehensive land use study of the west end of Grand Avenue, from the Short Line to Cretin Avenue. It sets out a desirable long range land use direction � for the Avenue, and specific objectives that will take it in that direction. It makes specific recommendations for improve- ments in zoning and parking to achieve those objectives. � BACKGROUND The Planning Commission set up the Grand Avenue West Task Force at the request of the District 14 Council. This report is related to a sim ilar report on Grand Avenue east, � which was requested by the Summit Hill Association and begun in 1982. 1 MAIN POINTS l. A 40 ACRE STUDY of Grand Avenue West, from the Short Line to Cleveland Avenue, should be initiated to rezone property in accordance with the recommendations of the District 14 and Land Use elements of the City's Com- �, prehensive Plan, and the more specific recommendations of this report. � 2. PREDOMINANTLY RESIDENTIAL AREAS should remain so. The B-2 zoned residential area on the north side of Grand east of Cleveland should be rezoned to RM-2. • The B-2 zoned apartment buildings between Cambridge � and Fairview should be rezoned to RM-2. 3. OPPORTUNITY FOR COMMERCIAL GROW"�H should L be in the fairly defined existing commercial cluster areas. The western ten lots on the south side of the block between Fairview and Howell should be rezoned from B-2 to B- � 2C in order to provide for commercial expansion while protecting the residential character of the block. 4. THE HIGH WINDS BLOCK (bounded by Macalester, Grand, � Cambridge and Summit), if it is redeveloped, should be rezoned to PD. The development should contain at least as much commercial space as now exists, and a parking ramp that is large enough to help provide parking for the businesses on the south side of the street as well as adequate parking for the new commercial and residential . space. i DIVISION OF PLANNING • DEPARTMENT OF PLANNING AND ECONOMIC DEVELOPMENT • CITY OF SAINT PAUL ° CITY HALL ANNEX • 25 WEST FOURTH STREET,SAINT PAUL, MINNESOTA 55102 • TELEPHONE: 612•298-4151 i 5. THE PD PLANNED UEVELOPMENT AREA REQUIREMENT should be changed from 3.5 acres in size to 1.5 acres in size. 6. SIGN REGULATIONS FOR THE B-2C DISTRICT should be changed to contain sign restrictions similar to B-1, to prohibit pole signs, and to require that sign illumination be operated onl.y until one hour after the close of a business day. 7. THE GRANDVIEW THEATER should work out a main- tenance agreement in order to use the Minnesota Federal parking lot on evenings and weekends, when Minnesota Federal is closed and the Grandview has its peak hours. 8. WHEN A NEW OR MORE INTENSIVE USE of any building . or premises generates increased demand for parking, the Zoning Code should require the provision of additional parking. Parking should be required for outdoor restaurants. 9. THE LEGAL NONCONFORMING AND SHARED USE STATUS OF COLLEGE PARKING should be determined by the Planning Commission. 10. THE COLLEGE PARKING REQUIREMENT in the Zoning Code is reasonable and should be enforced. Building perrnits for new buildings, or for the enlargement or increased intensity of use of exisiting buildings, should not be issued unless this parking requirement is met. � � � GRAND AVENUE WEST ?ASK FORCE PARKING AND ZONING REPORT � SUMMER, 1983 � � � � � , � � � � � � PLANNING DIVISION � DEPARTMENT OF PLANNING AND ECONOMIC DEVELOPMENT 1100 CITY HALL ANNEX SAINT PAUL, MINNESOTA 55102 612-292-1577 � � TABLE OF CONTENTS � � ---------------------------------------- ---------------------___- ------- I. INTRODUCTION 1 � - - --- - -- - - ----------____r._._��____---------- --- ------------ II. GOAL AND OBJECTIVES 4 � -------------------------------- -------------------�_..----------- III. PARKING ---.____-�----- - � _ Y__--------------_N-_v�_�_ Z_- SUPPLY AND DEMAND _ ,7� RESIDENTIAL PARKING 11 COMMERCIAL PARKING� � Y ��' �'^ 12 � � SHARED USE OF'PARKING ---- --�-_- --�y�-__ 1,2~ HIGH WINDS DEVELOPIVIENT __ 13 B-2C ZONING � 14 INCREASED INTENSITY_OF USE__ ___�,��__._�___ 16 � � COLLEGE�PARKING _--�------- ----`--,-y_--�7 - -----------------------------__ _--------------------- ---- -------.�__.Y._--__._.________- � IV. ZONING _ ____-------- ---_-- -----�9- ZONING HISTORY_Y_�-------- ----____ _. _._____._�L1_ 40 ACRE STUDY ___ _` _____ _ _�Q � RECOMMENDED�REZONINGS --_' _ __, _�_ PLAIVNED DE1iELOPMENT AREA REQUIRE�VIENT `__30 _ B-2C_SIGN_REGULATIONS_, _ V__ _ `_ __ _ V _ _�� --------_____-- -----------------------------------------------------________:_____-- V. ACTION PLAN 33 � ----- -______---------.�_._._.._--------------__---------------_._�.____----- APPENDICES BUSINESS SURVEY �� ' �� 34 MARKET ANALYSIS ^ y �� 39 ' -------------- ---------------------- � � � � � � � I. INTRODUCTION � � This report represents a comprehensive land use study of the west end of Grand Avenue, from the Short Line to Cretin Avenue. It sets out a desirable long range land use direction � for the Avenue and specific objectives that will take it in that direction. It makes specific recommendations for improve- ments in zoning and parking to achieve those objectives. � The Planning Commission set up the Grand Avenue West Task Force at the request of the District 14 Council. The � District 14 Plan points out zoning and parking problems along Grand Avenue and recommends the formation of a task force to solve them. � The City Land Use Plan states that site specific planning is needed for commercial strips. It states that commercial strips function best when they contain a mix of commercial � and residential uses. But it cautions that for commercial and residential expansion to take place in mixed use strip areas without increasing land use conflicts, careful, site � specific planning is necessary to identify the locations and conditions under which expansion is appropriate. The Land Use Plan says that area merchants and residents should be directly involved in such planning, and states the following � as City policy: The City will encourage the development of com- � patible mixed uses along existing commercial strips by: (1) developing specific land use plans; (2) developing design and performance controls; (3) continuing technical and financial assistance � to small businesses; and (4) modifying current land use regulatory provisions to permit appropriate flexibility in the reuse of land and structures. 1 On Grand Avenue West, most commercial development is clustered at a few commercial corners. The areas in between � are almost entirely residential. This land use pattern helps to limit conflicts between adjoining uses. � � � � ,�' 1 � � This pattern of commercial development in a few fairly � defined commercial cluster areas has a positive effect on the business climate of Grand Avenue West. Businesses that � are close together, particularly businesses that are comple- mentary, generate customers for each other. A commercial cluster area can develop an identity known by far more people than would know an individual business; it can develop an � image of the area that people remember. Such areas have a cumulative customer draw much greater than if the businesses were not clustered in an identifiable area. � For example, Victoria Crossing is a commercial cluster area that has developed a memorable image and well known identity. � It is interesting and, with its shared parking lot, convenient. Businesses there advertise together. They would not be as successful if they were spread out all along the Avenue. Another example is Muffaletta's, which lends image and � identity to the St. Anthony Park commercial cluster on Como. Because of the success of Muffaletta's Sunday brunch, peak � sales at the neighboring bookstore are on Sunday afternoons. The Land Use Plan identifies two areas of Grand Avenue � West that contain both commercial clusters and high density housing as mixed use strip areas: the area from the Short Line to Hamline and the area from Snelling to Fairview. These areas are a major source for commercial space, both � retail and service, to meet neighborhood needs, and it is in these fairly defined areas that any new commercial space should be developed. Intensif ying retail uses and providing � additional housing in these areas can give them a healthy image. Bringing more residents into these areas creates an added market, which can improve the viability of the bus- � inesses and can substantially improve the condition of the areas by spurring reinvestment. The Land Use Plan identifies the other commercial cluster � area on Grand Avenue West, at Grand and Cleveland, as a neighborhood commercial center that primarily helps to meet local neighborhood commercial service needs. It states that � business improvements in existing commercial space should be encouraged here but that the amount of commercially zoned land should not be expanded. This study of Grand Avenue West is intended to implement � the recommendations of both the District 14 Plan and the Land Use Plan: to take the more specific and detailed look � at Grand Avenue that both recommend. � 2 � � � GRAND AVENUE WEST COMMERCIAL CLUSTER AREAS � � � PO LAN U u u u U l�!U lJ U m u U U U PO T�AND � SUMMIT ��❑�❑ m ��❑��a� AVE. � � �c�00000 oa0000�— '�'7::r. N Ul � (R�:iriri:7i+r.'�"�'r�'iilrir�i. �?'�� '�.:... � �itC`.;.�.�,:,:'. Vl ..... ::::.. :.. RAN •..::7}7;}�:: pNf��'•�'}?�}Y:',: ;:::::'�i. :Cvi;ii•:�i<�i�:: • . ��:..:ti D . ,. ...,:..:::.;��.'..:`.'�... .. $ `:�'.�Y:i:::::�Y�:•�i'••:`•;•};`if :i;�:�;i:':::�:i;: 0�;�;;':;ii•'irj:�.};;'r`+i,',;:i;'+� �7i::7:�::^.::;;`;:;,�;^' ��'�''tINCOLN �� A�. :;::}:..�.` i;:i<:��"'..'t . � '� . ... � �a ':}:•�•i!i:?::' x z GOODRICH � AVE.::':'�� y1. 51 �� 1�_ ��I II I�� u _ II I�� j � � � � i � 3 � II. GOAL AND OBJECTIVES � � Long range land use goals for Grand Avenue involve decisions about the role of Grand Avenue, and form a base from which � to deal with other issues such as zoning, parking, design, and individual development proposals. The fact that Grand is already developed limits the options available in dealing with such issues. But there are choices to be made that, � especially over time, do affect the role of the Avenue, land use patterns, and our ability to solve existing problems. There are choices to be made that will point the development and � redevelopment of Grand Avenue in a direction that is desirable: choices regarding the location of residential and commercial land use, the type of residential land use (single family or � multiple family), the type of businesses at various locations (neighborhood oriented or serving a larger market), the ex- pansion of commercial uses in residential structures, and the development of parking at the expense of residential � structures. The District 14 Plan states that Grand Avenue "business � should enhance and serve the community as it does now, rather than expand to the degree where it conflicts with the community and alters the residential character of the � district." From a different perspective, the Land Use Plan says that new business uses on commercial strips should be encouraged, but that they should be clustered in the mixed use strip areas identified in the plan. These two statements � are not incompatible. The objectives of both the residential and the commercial communities along Grand Avenue can be summarized in a single, general long range land use �oal: � Grand Avenue West should be maintained and improved as a viable mixed use commercial/res- � idential street with special character. More specific land use objectives for Grand Avenue West, based on that single land use goal, follow: � 1. Provide opportunity for commercial growth in the commercia! cluster areas on Grand Avenue West: (1) the Cleveland com- � mercial corner and the north side of the block west of Cleveland; (2) the Grand Village area, from Macalester to the Fairview commercial corner and the south side of the block west of � Fairview; and (3) the Hamline/Syndicate commercial area. � � 4 � � � � 2. Ensure that the areas on Grand Avenue West that are currently dominated by residential land use remain so; these areas are (1) the block from Cretin to Finn, (2) the area � between the Cleveland commercial corner and the Fairview commercial corner, and (3) the area between the Snelling commercial corner and the Hamline commercial corner. � 3. Encourage clustering of businesses that are complementary (generate customers for each other) to achieve a "critical mass" of cumulative draw. This does not mean there's a prima � facie reason to reduce the amount of commercially zoned land. In addition, encourage the smaller, more personal scale that characterizes business on Grand Avenue West. � 4.Encourage the development of apartment buildings all along the avenue, and especially as an integral part of the three commercial cluster areas. If the block between Macalester � Street and Cambridge Street is rezoned and redeveloped, the development should contain at least as much commercial space as now exists. � 5. Ensure that any business locating in new commercial space, whether it be new construction or residential space converted � to commercial space, provides adequate off-street parking. "Adequate off-street parking" does not necessarily mean the number of spaces required by the zoning code. When the requirements of the zoning code result in undue hard- � ship, variances can be granted by the Board of Zoning Appeals. 6. Encourage the City to aid, when possible, in ensuring ad- � equate parking for existing businesses currently short of off- street parking. 7. Ensure that new apartment buildings are served by adequate � off-street parking. 8. Provide adequate buffers (fencing, landscaping, space) � between conflicting residential and commercial land uses. Ensure that residential visual character is maintained when houses are converted for commercial use; this should include � provisions for a front yard setback and reasonable restrictions on signs. 9. Ensure that any home occupation on a part of Grand Avenue � West that is currently dominated by residential land use must move to a commercial location if it grows to beyond what is allowed under the definition of home occupation. � � ,� 5 � � Zoning is the City's principal means to influence future land � use patterns. The following zoning objectives are based on the land use goal and objectives and outline the means of � implementing the land use objectives. Specific recommended rezonings and zoning code text changes are contained in the Zoning section of this report. � 1. Provide enough commercially zoned property in the three commercial cluster areas on Grand Avenue West to allow for a limited amount of commercial growth. � 2. Provide additional space for medium density multiple- family housing development where appropriate. � 3. Ensure that a reasonable amount of parking is provided and residential visual character is rnaintained when residential structures are converted to commercial use. � 4. Ensure that signs for businesses in houses that have been converted to cornmercial use are consistent with residential � visual character. 5. Provide RM-2, B-2C, or PD zoning for apartment buildings � on Grand Avenue West to make them conforming uses. � � � � � � � � 6 � � I[I. PARKING � � SUPPLY AND DEi�1AND For the purpose of analysing parking supply and demand, � Grand Avenue West was divided into ten identifiable, separate areas. Each area can be generally characterized by a par- ticular type of land use. Some are alrnost entirely residential. Others are cornmercial corners and almost entirely commercial. � And a couple of them contain a mix of commercial and high density residential land use. � For each area, the number and location of on and off street parking spaces was deterrnined, and the parking need was calculated for the existing land use according to the zoning � code parking requirements for those uses. Based on that data, a parking shortfall was calculated for each area, as indicated in the follo�ving table, "Grand Avenue West Parking Need". For comparative purposes, because of the large dif- � ference in the size of the various areas, the parking shortfall per 1000 feet of street frontage was calculated for each area. � Area 1, Grand and Syndicate, contains a mix of commercial and high density residential land use. The area's parking � shortfall of 83 spaces is primarily due to the large apartment buildings that have very little off-street parking. The principal business in the area, the Red Owl grocery store, has a 75 space parking lot and a 66 space parking requirement. The � residential units in the area, on the other hand, have a com- bined parking requirernent of 166 spaces and only 36 off- street parking spaces available. � Area 2, the corner of Grand and Hamline, has the greatest parking shortfall per foot uf street frontage of the ten areas � studied. Like Area l, it contains a mix of commercial and high density residential land use, although both co►nmercial and residential uses have a substantial parking shortfall. The residential units in the area have a combined parking � requirement of 113 spaces and only 36 off-street parking spaces available. The Green Mill, which is the business in Area 2 that generates the greatest demand for parking, has � a 15 space parking lot and a parking requirement of 52 spaces. There are a number of other businesses with little or no off- street parking, as well. � � � � 7 . � GRAND AVENUE WEST PARKING STUDY AREAS � �11 1� LAU REL uL�UU AVE. �Q�OO�� `\� Uu � � p� AND ❑a � � ��❑�� D ASH LAND r �r P� �AN ❑❑�❑��a�� PO TLAN � ❑a❑❑�❑ m ��❑ ��C�a� � -�i SUMMIT AVE. __l �� 0� �� •: GRAND ' AV •�::' �' •:.•:. .... .... ... . ...... . . LINCOLN AV � Z GOODRICH � AVE. �p v� m 51 ��L� A_ FAIRMONT �� AYE. �� m A 'i ��,�� 1 —1 r-1 r-1�-1�f--1�1 � � GRAND AVENUE WEST PARKING NEED * � Spaces Spaces Parking Street Shortfall Area Needed Provided Shortfall Fronta e Per 1000' � 1 . 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Cambrid e to Fairview 336 254 82 2400 34 '� <:::;:;::::i:::::;::::::;;:::::;:::::::>::::::::::>::>::>::>: :::::;<::��:t�:�::»::>::>::>::::>::::>�:��'A:�::;;:.:.;:.:;. :.;:.;:.;:.�.:;.;:<.;;;;;:.; ::::�::��II::::s»::::::: �::::::�:��:::��:�:::>:::::::::::::�:::::�:. . . :::::::::::::::::�:::::::::::::::::::::::::::<::::;::<:::>:::::::::::::::::::>::::�:;:::::::::>::>::>::::::::::::::::;:<:»:�>:::��:;::::::::::�>:::::::::::::: �.�: :::::: .::::.:.:.:.:::::.;.:.;.,:::: ..:: .:::::....•::::.�:::::::::::::::::::::::::... . . . . ::::�:�'`::�:>:::��:��::::a��::::��:��r:�::��::::::::>::::::::>::::::::;::::::::::<:>:��:a��:�:::::::...... ............. .......................... ......................... .................... .. .. . . . . . ::::::::::::>::>::::::::::::::::::::::::::::::::::::::::::::::::::>::>::>::::::>:::::::>::>:;:::::::;:::::.<>:; <:<:::>::��:��`.:::::;:::::�:::::::::::::<:::>:;<::=>:<:::::::;:::::::::::::::::::�:>::::::::::::::>::::::::;::;:::;:<::;�::;:::�::<::><:<::�:>�::�:'::<:::>::;::»::;<:»::::::::>::::>:<::<:<::>:<:>�::::::<:>:::: :::::::::::::>::::>:::::::>::::::::::::�:::::::::::::>::>:;:::<:>::�::>:::::::::>::::>::;::;:::::::>:::;::<::::<;::<::: ....... .......................................:::::::::::::::::::::::::::.:::::::::.�:::::::::.�:::�.::::::::::.:.::.:::::::::::.�::::.::.::.:::::::::.:.:::::::::::.:.:::::::::..::::::.::....:.:.::.:::::::::::::....:::..<::<::::. ;. � �. .:i:>�:»::::>::>:<:>::>.�: ::»::;::>:.»... �::>�� ::.:<::.;:.:.;:.;:.;:.;;:�8.;:.:.;;;:<.;:.;: :�;::;> �:�:�:::::::::::::::::::::�::;:�:�:��<�::>::><::::::::: :�::::::::>:?��::::::::::>::>:::::<:>::..�.� . ::::::::::::::::::::::::«:>:::::::::::<::::>:::;:>;::::::::::<:;:::>::>:::::>::>::::>:>::<:::::»::::::«::::::.: :::::...�.�.:.:.:::: ::::: �::. � ::::::::::>::>::::>::>::»:::::::::;:<::<::::;::::::::«::::::::::::>::>::>::»>:::::::<:;:>:::;:>::;:::::��..�f��::::: ............ ........ .......................... ......................... .......... ... .... 8 . Fairview to Cleveland 574 421 153 5150' 30 � �`��'��':i�::::>:::::::::::::::::::��::}�::::;;>��::::::::i: ��••�.•�:�s;:�>:-::�:�>:�:�:;�:�:::��:>::�:�>:�>::�::� ��:`�:� �� ;:::.>::.;:.;:.;:;:;::�;:�::;�;:;�;:�;:•:;;�::•;:�;:•;:•;:•;:�>:.;:�;:�;:�>:•>:•:::;;:.;:�;;;:�;:>::::::.�::::::::::::::::::::::::.•::::::::::::::::::•:.•::.�.�::::::::::::::.::::•:::.::::::::::.�:._:::::::. ;•>:.;•::::::::::::::::::::;�;;;:;•;:•;;:;:•;:•;;:::::•;:�:;;;;:•>:•::•;;;:•;:;•;:�:�:�:<:•>:•:::•:;:�::::•:::•>:•;:•;:•;:•::•;:•>:•;:•;:•:•::•::•::::::�:::.::::::•::•>:•::•:;•:::::•::•::•;:•;;:•;;:<.:•>;::.:::.::.;•:::::::::::::::. •�:::�;:;:::::;..,::`.�_;,�_;::;:::.,:.::::::::.:::::::::::::��''�`''��:�:�:��>?��:�::�:�::<::::;::::;>:>��:�s::�:�>:�:�>:�:�:�>:�:�:�;;�;�;�:�;;�;<s?:�`��:<�:�:�>:�:�:��:�:�:�:�:�:�:�:'�>��:�>:�>`;�>:�::��:�>�:�:�:�>:�:�:�:�:�:��:�:�::��::��.....�............ .. ............. . . ....�...�:��...��d...�.I.��.1.�a�s�.......................................... .. .. . 10 . Cleveland to Cretin 363 273 90 2900' 31 ,� * This table does not represent college generated parking demand. � 8 � � � � Area 3, Hamline to Snelling, is almost entirely residential. It has a mix of single-family homes, duplexes, and small to medium sized apartment buildings and does not have a parking � shortfall. Area 4, Grand and Snelling, is primarily commercial. It � includes a couple of apartment buildings which are between the commercial corner and the Lampert Lumber Company parking lot on the south side of Grand. The area has a high parking shortfall per foot of street frontage due primarily � to Lampert Lumber's 38 space shortfall and Schaak's 19 space shortfall. � Area 5, the Grand and Cambridge commercial area, is almost entirely commercial. Because of the differences in operating hours amor�g the variety of establishments in the area, parking � demand was calculated separately for days and evenings. There are 240 existing parking spaces in Area 4. In the evening, with a demand for 189 parking spaces, there is surplus parking. During the day, however, there is a demand of 377, a shortfall � of 137. This parking shortage is not due to any single business; rather, it is the combination of many small individual shortages. 1 Area 6, between the Cambridge and Fairview commercial corners, contains some commercial space. The primary land use in the area, however, is fairly dense apartment buildings. It has a parking shortfall of 34 spaces per 1000 feet. � Area 7, the Grand and Fairview commercial corner, does not have a parking deficiency on weekdays. However, on � evenings and weekends, when the Grandview Theater has its peek hours and the Minnesota Federal parking lot is closed, the area has a shortfall of 44 spaces. � Area 8, between the Fairview and Cleveland commercial corners, is almost entirely residential. Due to a number of apartment buildings with little off-street parking, there is � a parking shortfall of 30 spaces per 1000 feet. Area 9, the Grand and Cleveland commercial corner, has � a parking shortfall of 17 spaces. � � � � 9 � � Area 10, between the Cleveland commercial corner and � Cretin, is primarily residential. It also contains a few bus- inesses, primarily offices. The area's parking shortfall of � 90 spaces is almost entirely due to the unmet parking demand of the apartment buildings at the west end of the area. This stated shortfall represents neither the parking demand of St. Thomas College nor the parking demand of commuters � who park in this area and ride an express bus to downtown Minneapolis. The parking demand of park and ride commuters and St. Thomas � College is a substantial part of the actual parking demand in areas 9 and 10. While zoning code parking requirements � can't be used to estimate the demand for parking in the area by cornmuters who take the express bus to downtown Minneapolis, the zoning code can be used to help determine the number of parking spaces needed by the college. � The zoning code parking requirements that pertain to college campuses are as follows: one parking space for every three � seats or six feet of benches in stadiums; one for every five seats plus one for every two employees for auditoriums; one for every three employees and members of the staff and � one for every three full-time students not residing on campus for a college, university or seminary; and one parking space for every three beds in dormitories. When operating hours of buildings do not overlap, the Planning Commission may � grant an exception perrnitting the dual function of off-street parking spaces. For exarnple, the Planning Commission may deterrnine that peak parking demand generated by a stadium � is on weekends, �ahen most of the parking for students not residing on campus is not needed and can be used to meet the parking requirement for the stadium. Because the peak demand for parking generated by stadiums � and auditoriurns tends to be at different times than the peak demand by commuting students and staff, a rough estimate � of college parking demand can be based on the Zoning Code parking requirement for students and staff. St. Thomas College, with 655 employees, 2400 full-time students not � residing on campus, and 1315 dorm beds, has a demand for roughly 1457 parking spaces. The college currently has 885 off-street parking spaces, a shortfall of 572 spaces. This estimate is not based on a parking survey. It is simply based � on the parking requirements of the Zoning Code for com- muting students, staff, and dormitory beds. Because this estirnate of parking demand does not account for any additional � demand generated by auditoriums and part-time students, it is probably low. � 10 � � � � The result of the St. Thomas parking shortfall is a heavy demand for on-street parking north, east and south of the campus. Peak demand is between 10:30 and 2:00 during the � day and between 5:00 and 9:00 at night from Monday through Thursday. During these hours there is a heavy demand for on-street parking between Cleveland and Cretin on Grand � Avenue. RESIDENTIAL PARKING � Recommendations 1. Adequate of�'-street parking must be provided for any � new residential development. 2. Houses should not be removed to provide parking for existing apartment buildings. � 1�9uch c�f i;i�e parking crunch on West Grand Avenue is due to the concentration of fairly large apartment buildings that � have little or no off-street parking. These buildings were constructed along Grand Avenue because of the trolley line at a time when there was no city requirement for parking � and little demand for parking. There is no acceptable solution to the lack of off-street parking for these �lder apartment buildings on Grand other than to become more tolerant of parking congestion. � Removing houses to provide parking lots is not usually an acceptable solution. It involves economic and aesthetic costs � that are just too great. The fairly continuous building line, the definition and character it gives to the Avenue, is an important design feature of Grand Avenue. It should not � e broken by par�cing lots. To sorne extent, an economic model applies to residential parking supply and demand: people with cars tend to migrate � to places that have available parking. Given the substantial residential parking shortfall on Grand Avenue, additional parking spaces would be consumed by people with rnore cars � until the previous level of congestion is reached. The parking problem would not be solved. It is important that the existing parking problem not be exacerbated, however. New apartment � buildings must be served by adequate off-street parking. � � � 11 � � COMMERCIAL PARKING � Recommendation � 3. Adequate off-street parking must be provided for any new commerciai space. To sorne extent, an economic model also applies to commercial � parking supply and demand. In the case of the corner of Grand and Hamline, which has the largest parking shortfall per foot � of street frontage on West Grand, additional off-street parking may slightly ease the parking crunch in the short run. In the long run, however, it may increase the possibility that � parking intensive commercial uses would expand or locate in vacant or less intensively used commercial space on the corner. � The Green Mlll may be able to solve its own parking problem by providing additional off-street parking, and that is positive. If it results in more parking intensive commercial use in the � area, however, the parking problem of the Grand and Hamline area would not be solved. Because of the negative aesthetic effect of removing any of the houses in the Grand and Hamline � area for parking lots, and because of the impact noise and light in such lots would have on residents in neighboring houses, the city should not encourage the removal of houses for parking lots in the Grand and Hamline area. r � SHARED USED OF PARKING Recommendation � 4. The Grandview Theater should work out a maintenance � agreement in order to use the Minnesota Federai parking lot on evenings and weekends, when Minnesota Federal is closed and the Grandview has its peak hours. One of the best ways to reduce the parking problem on Grand � Avenue is to get the maximum use of parking lots through shared use b�y businesses with different peak hours. Such � cooperation by businesses can ease parking congestion without wasting valuable land and without large, uninviting areas of pavement. The most likely place for such shared use of � parking to occur is where there is a cluster of businesses. � � 12 � � � � At Grand and Fairview, the evening and weekend parking shortfall of 44 spaces could be largely eliminated by use of the Minnesota Federal Savings and Loan parking lot for Grand- � view Theater parking. Minnesota Federal is open to such an arrangement provided the Grandview helps to pay for maintenance costs. The Grandview Theater is strongly en- � couraged to work out a maintenance agreement with Minnesota Federal in order to use the lot. � HIGH WINDS DEVELOPMENT Recommendation � 5. If the High Winds block is redevelopecY, a shared use purking ramp should be develoPed that is large enough to heIp provide parking f or the businesses on the south � side of the street as we11 as adequate parking for the new commerciai and residentiai space. The Grand and Cambridge commercial cluster area is another � place where shared use of parking can help to ease the parking shortfall. If the block bounded by A�lacalester, Grand, Cam- bridge and Summit is redeveloped by High Winds, parking � co�ld be shared by residential and commercial portions of the development; peak residential parking demand is on evenings and weekends, while peak commercial parking demand is � on weel<days. The existing parking demand in the Grand and Cambridge area, which is prirnarily commercial, is a good example. Based on business operating hours obtained in the busin°ss survey, the area has a 137 space parking shortfall � during the day and a 51 space surplus during the evening. There are now 240 parking spaces in the Grand and Cambridge � area. Without the High Winds block there are 167 parking spaces in the area, a demand for 302 parking spaces during the day and for 146 parking spaces during the evening. � Adequate off-street parking must be provided for any new commercial or residential space. If the High winds block is redeveloped it should have at least as much commercial � space as currently exists on the block as well as fairly high density housing. Such a development almost certainly would necessitate the construction of a parking ramp. ,� � � � 13 � � Parking on the High Winds block, as it exists now, does not � j�st serve the commercial and residential space that is on the block; it also helps to provide parking for businesses on � the south side of Grand and for Macalester College. If the block is to be redeveloped without increasing parking problems in the area, parking to serve Macalester College and the � businesses on Grand must be provided to make up for the spaces lost. Parking should be provided on the Macalester campus for those Macalester cars that now use the parking on the High Winds block. � The need for more parking was cited by 9 of the 11 businesses in the Grand and Cambridge area responding to the survey � question "What changes, additions, deletions, are needed to keep your part of the avenue productive?". Of the 20 retail businesses in the area responding to the question "Does � your business need more parking?", 19 answered yes. Of those, 14 said they would or possibly would consider paying some form of assessment for a shared parking facility. If the High Winds block is redeveloped and a parking ramp � is constructed, the parking ramp should be large enough to help to provide parking needed by the businesses on the south � side of the street. Because of the high cost of constructing such a ramp and because of the public purpose it would serve, there should be public involvement in its financing in order to keep the interest rate down. � B-2C ZONING Recommendation � 6. Where space for commercial growth is to be provided � through the conversion of houses to commercial use, the property should be zoned B-2C to ensure that adequate parking is provided and that such parking is not located in the front yard. � It is ir:�portant that any business locating in new commercial space, whether it be new construction or residential space � converted to commercial space, provides adequate off-street parking. For new construction, adequate off-street parking is required by the zoning code. However, residential space � ' is often converted to commercial space without the provision of adequate off-street parking. . � � 14 � � � � On Grand Avenue West there are a number of houses zoned B-2 in order to allow space for commercial growth. Under B-2 zoning the houses can be converted to commercial use � without the provision of adequate parking, often agravating an existing parking problem. It can be especially serious when the conversion is to a business with an extremely high � parking demand, such as a restaurant. The increase in parking demand can hurt other businesses in the area. A lack of adequate parking has also contributed to the failure of some businesses in converted houses. � The B-2C zoning classification is specifically designed for situations in which space for commercial growth is to be ' provided through the conversion of houses to commercial use without creating serious parking problems. Types of commercial uses that tend to generate the greatest demand for parking, such as restaurants and theaters, are not permitted � under B-2C. When houses are converted to commercial uses that are allowed, one parking space for every 300 square feet of usable floor area is required. This would amount � to 4 spaces for a typical converted house on a 40 foot lot and could be provided off of the alley. Under B-2C there is a front yard setback requirement greater than in other � commercial zones, and parking may not be in the front yard. Because of the limited space for off-street parking in the typical B-2C situation, the parking requirement is about half of what would be required for new construction and is intended � to provide parking for employees. Providing customer parking in a rear yard would tend to result in too great an increase ' in alley traffic volume. � The western ten lots on the south side of the block between Fairview and Howell and the western eleven lots on the north � side of the block between Cleveland and Finn are areas containing houses that have been converted to commercial use mixed in with houses with residential use. Both areas are adjacent to commercial corners and are areas in which � space for commercial growth can be provided through the conversion of houses to commercial use. In order to ensure the provision of employee off-street parking when houses � are converted to businesses as well as to retain the visual character and open space associated with residential uses, these two areas should be zoned B-2C if they are used to � provide space for commercial expansion. � � �' 15 � � INCREASED INTENSITY OF USE � Recommendation � 7. The zoning code should be changed to require the pro- vision of additional parking when a new or more inten- � sive use of any building or premises generates increased demand for parking. Parking should be required for outdoor uses such as outdoor restaurants. One of the real causes of the parking problems on Grand � Avenue is the provision in the zoning code allowing businesses to move into existing buildings without providing additional � off-street parking spaces when the demand for parking generated by the new use might be far greater than that of the previous use or the use the structure was built for. The Green Mill, for example, was able to convert a former auto repair garage � to a restaurant without providing adequate off-street parking. A restaurant has a parking requirement much greater than that of an auto repair garage, but the zoning code requires � the requirement to be met only when a building is newly con- structed or physically added to. The zoning code should be changed to get some control over � the amount of off-street parking required when a new use of a building generates a demand for parking much greater than the amount of parking required by the building's previous � use. Additional parking should be required, for instance, if the types of businesses that go into the vacant space at 1330 Grand generate a lot of additional demand for parking. � Such a requirement would help to avoid parking problems like that of Crocus Commons. Without such a requirement, parking intensive businesses moving into 1330 Grand could � create an even more chaotic parking situation at Grand and Hamline. Another problem is that parking is not required for outdoor � restaurants. The parking requirement for restaurants is based on "usable floor area", which by definition must be in a building. The parking requirement for restaurants should include some � parking requirement for outdoor areas used to serve customers, as well. � � � 16 � � � ' � The zoning code should be amended so that when the intensity of use of any building or premises is increased through change of use or through addition of dwelling units, usable floor area, � seating capacity or other measurements determining the number of required parking spaces, off-street parking spaces must be provided for such increase in intensity of use. However, � for non-residential buildings erected prior to the effective date of this amendment when enlargement of the building is not involved, such additional parking should not be required unless the aggregate increase in unit of ineasurement is more � than 15 percent, in which event parking should be required for the total increase. � COLLEGE PARKING Rec�mmendations � 8. The Zoning Code parking requirement for colleges shouid be enforced. Building permits for new buildings or the enlargement or increased intensity of use of existing � buildings should not be issued unless this parking requirement is met. � 9. The Planning Commission should determine the legal nonconforming status of college parking based on parking shortfall at the effective date of the Zoning Code parking � requirement (October, 1975) and the number of parking spaces on a campus that may serve more than one use based on the different peak hours of parking demand generated by stadiums, auditoriums, employees, and � students. The number of parking spaces the Zoning Code requires for � colleges is based on a combination of the number of seats in stadiums and auditoriums, the number of employees, the number of commuting full-time students, and the number of beds in dormitories. Because of this combination of uses � and units of ineasurements, because of different peak hours among the uses, and because of the constantly changing number of students and employees, the parking requirement � for colleges has been more difficult to fairly enforce than the parking requirements for most uses, which are based on usable floor area or number of units. � � � � 17 � � Parking requirements are enforced through the City's building � permit, site plan review, and certificate of occupancy processes. When building permits for a new college classroom building � are issued, for example, the Zoning Code requires off-street parking based on the total number of employees and full-time commuter students for the entire campus, adjusted for the � number of existing parking serving that group and for the legal nonconforming parking shortfall for that group. In the case of a rapidly growing campus, such as St. Thomas, the number of parking spaces required at the time of obtaining � permits for a new building can easily be more than are needed by the students and employees that the new building will serve, and the zoning administrator has been reluctant to � enforce that requirement. The Zoning Code parking requirement for colleges, based � on the number of students and employees on the entire campus and enforced when building permits and certificates of occupancy are needed, is reasonable. Building permits for new buildings or the enlargement or increased intensity of use of existing � buildings should not be issued unless this parking requirement is met. To aid in the fair enforcement of the parking requirement � for colleges, the Planning Commission should determine the legal nonconforming status of college parking based on the � parking shortfall at the effective date of the Zoning Code (October 25, 1975), as provided by the Zoning Code. In addition, the Planning Commission should determine the number of parking spaces on a campus that may serve more than one � use based on the different peak hours of parking demand generated by stadiums, auditoriums, employees, and students and as provided in section 62.103 of the Zoning Code. In � considering the dual function of college off-street parking spaces, the Planning Commission should consider the effect on parking of part time students, who are not accounted for in the parking requirements. � As with the development of the High Winds block, the con- struction of a parking ramp may be necessary to provide � adequate off-street parking for the St. Thomas campus. Because of the high cost of constructing such a ramp, and because of the public purpose it would serve, there should � be public involvement in its financing in order to keep the interest rate down. � � 18 � � IV. ZONING � � ZONING HISTORY � The first zoning code in St. Paul was adopted in 1922 and was in effect until 1975. During that time almost all of Grand Avenue West was zoned "C" Commercial, a category that allo-�ved almost any kind of commercial or residential � land use. There were only three blocks on Grand Avenue West that were not zoned "C" Commercial. The block between Cretin and Finn was zoned "C" Residence, a multi-family � residential zone. The block between Snelling and Macalester was zoned "A" Residence, which was the appropriate zone for Macalester College. The block between Hamline and � Syndicate had three zoning categories: the commercial buildings at the corner of Grand and Hamline were zoned "C" Commercial; the large apartment buildings on the block were zoned "C" Residence; and the houses on the block were � zoned "E3" Residence, a duplex zone. The "C" Commercial zone was to allow commercial space � to be developed all along the street car line. Because of the low density of the neighborhoods along Grand West, how- ever, there was sirnply not a market for that much commercial � space. Most of the commercial space that was developed is clust�red at specific commercial corners. The development that took place in the areas between those commercial corners is almost e�tirely residential: a mix of houses and apartrnent � buildings. When the entire city was rezoned in 1975 under the new zoning � code, Grand Avenue West was rezoned according to the way it had developed. Because of the conflict that can exist between residential and commercial land use, it was determined that commercial uses should not be alloa�ed in areas that were � primarily residential and that residential structures should not be constructed in areas that were primarily cornmercial. � Under the current zoning the areas that are primarily res- idential are zoned RM-2, a multiple family residential zone. Commercial uses, which can impair the reasonable enjoyment � and value of adjacent residential property if allo��ved to randomly mix with residential land use, are not allowed under RM-2 zoning. � � � � 19 � � The areas that are primarily commercial are now zoned B- � 2, a cornmunity business zone. Businesses that are clustered at a commercial corner generate custorners for each other � to a greater extent than if the same businesses were spread out all along the street. Limiting commercial zoning to fairly defined area tends to get businesses to cluster more and is good for business and the value of commercial property. � The rezoning of most of Grand Avenue West from commercial to residential in 1975 was a fairly major change. In order � to make sure there would be plenty of space for commercial growth, a substantial amount of residential property was zoned B-2. Currently, the land use of 41% of the B-2 zoned � property along Grand Avenue West is residential. 40 ACRE STUDY Recor►irnendation � 10. A 40 Acre Study of Grand Avenue West, from the Short � Line to Cleveiand Avenue, should be initiated to rezone property in accordance with the recommendations of the District 14 and Land Use elements of the City's � Comprehensive Plan and the more specific recommendations of this report. The Si�� Iunicipal Planning Statutes Section 462.357 (5) � allows cities of the first class, which includes St. Paul, to initiate a study, conducted through their Planning Commission, of the whole city or of any area not less than 40 acres for � the purpose of recommending that the City Council rezone portions of the city. Since zoning guides development and influences future land � use, the 40 acre study process provides the City Planning Commission and the City Council with some control over development and future land uses. This control can be used � to resolve existing or potential land use conflicts. Since the 1975 rezoning of the Avenue, both the District � 14 and Land Use elemznts of the City's Comprehensive Plan have been adopted. Zoning is a primary means of implementing reco►nmendations in both. In order to implement recommendations in the District 14 and Land Use elements of the Comprehensive � Plan, in order to achieve the goals for Grand Avenue West that are recommended in this report, and based on the results of the business survey and convenience commercial market � analysis that are contained in this report, the City should initiate a 40 Acre Study of Grand Avenue West. � 20 � � � W T 4 A RE STUDY AREA PROPOSED r,RAND AVENUE ES O C � m A H AND U U I_J � L�J U U U U � I�I AV . �J u II� ASH LANO � � n � ) rD PO LAN aooaoc�o❑o m ��❑ � PO TLAND � SUMMIT O ��❑❑�� m �❑❑❑�a�a AVE. � � � � O 000 �� a� OO�O[- � `� GRAND ' AVE. � � � LINCOLN AV _ � Z o � ap � nm 51 0000� -{- Z GOODRICH AVE C^?i I � � A - ��r-��f�1_ � m ��1�-��- � � � � � � � � � � , � � 21 � � The 96 acre area to be included in the 40 Acre Study is indicated � on the "Proposed Grand Avenue West 40 Acre Study Area" map. The area is defined by the Short Line Road to the east, � Cleveland Avenue to the west, and the parallel alleys to the north and south of Grand Avenue. The area includes the entire block bounded by Macalester, Grand, Cambridge and Summit. � RECOMMENDED REZONINGS Rezonings to B-2C Community Business (Converted) � Recommendations 11. The western ten lots on the south side of the block � between Fairview and Howell should be rezoned from B-2 to B-2C in order to provide for commercial expansion � while protecting the residential character of the block. 12. The three houses at the southwest corner of Grand � and Wheeler (1T38-1752 Grand) should be rezoned from B-2 to B-2C. There should be space for commercial growth on Grand Avenue � West. Commercial growth should take place primarily in the existing commercial areas, where the clustering of businesses that are complementary can help them generate customers � for each other. Most of the commercial space in the Hamline/Syndicate commercial � area is used for retail convenience businesses: the food store, liquor store, drug store, gasoline service station, and restaurant. These are businesses that primarily meet the convenience retail needs of the immediate neighborhood, although the , Green Mill has grown to serve a larger market area. New businesses that would tend to be most complementary � to existing businesses in the area would be more retail con- venience businesses. And with the parking problem in the area, it would certainly make sense that new businesses � primarily serve the immediate neighborhood and hence not generate so great a demand for additional parking. The market analysis that is a part of this report, however, in- dicates almost no market for additional convenience retail � space in the Hamline/Syndicate area. , , 22 � � � � Given the type of businesses that would complement the existing businesses in the Hamline/Syndicate area, the lack of a market for more of those businesses, and the parking � problems in the area, there should be no additional commercial zoning in the area. With the vacant space at 1330 Grand and the B-2 zoned residential property across from the Red � Owl, there is more than enough commercially zoned land in the Hamline/Syndicate area now. In the Grand and Cambridge commercial area, there is ade- � quate space for commercial growth on the block High Winds is considering developing, particularly if the block is developed as a planned development. � At Grand and Fairview, space for commercial expansion is provided on the south side of Grand between the Grandview � Theater and Howell Street. It is one of the areas, with land use that is primarily residential, that was zoned B-2 in 1975 specifically to provide space for commercial expansion. The area contains a couple of houses that have been converted � to commercial use. There can be some problems created when houses are con- � verted to commercial use in a B-2 zone: a parking problem can be created because no parking is required for the con- version; some uses allowed under B-2 zoning, such as res- � taurants, can generate a lot of noise and traffic and a very high demand for parking; because there is no setback require- ment under B-2, front yard additions can infringe on the existing visual character that is important for the value and � enjoyment of adjacent residential property. The B-2C zone is designed specifically to solve these problems � by requiring a residential setback, requiring off-street parking for employees, and not permitting those businesses that gen- erate the greatest demand for parking. Lots 1 through 10, Block 4, Rosedale Park Addition (the first ten lots east of � Howell on the south side of Grand) should be rezoned from B-2 to B-2C. � At Grand and Cleveland, an area on the north side of Grand east of the 7-11 store was zoned B-2 in 1975 in order to pro- vide space for commercial growth. The area does not serve 1 this purpose well, however. It is entirely residential, with substantial and well maintained residential structures, and it is physically quite removed from the Grand and Cleveland � commercial corner. � � 23 � � � � � 1 � ' 1 ' 1 1 1 ' 1 . � • • • • • • • • • • I • ♦ • • • • • M • • • • • • • • • � 1 � � � � � � � • • � • • � � � � • • • • � • • • • • • • � —�=I —� i — f • • • • • • • • • • • • �� • • • • �� • • �' � �' • • • � �• • l� • �� .� ., . �� A ' �� r - -- 6 N ,� - - -� �!��A� � .��. .�• . . . .�. . ' Y �, , �' a q g � 4 •��d�. . . . .�`, , � i � � � �� r�� ub�� V�� - • . � � � � • � � �� . . . 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N . . . . . . . . . . . . . . g� ��5 . . . . . . . � � x. . . . ��! ��'i��'i ��i�'i�i t �■ �i �i�i��O � �O�O� , _ _ , , , . _ _ . . . . . . . . . . . . �� . , . . � . � �. . .. . . . . . . � . �... . . .,r.:,. . , . . . . . . . .� �� -•-•-� : . : :•�•�� : � : � � � , :. � . � � The area that would best provide space for commercial growth � at Grand and Cleveland is on the north side of Grand between Cleveland and Finn. It is an area with quite mixed land use � already: commercial sturctures, an apartment building con- taining a dental office, two houses that have been converted to office use, and three houses with residential use. � The two houses that were converted to offices on this block were rezoned to OS-1 Office Service, while neighboring houses are zoned RM-2 Residential. 13-2C zoning would � eliminate this kind of spot zoning while creating no nonconforming uses. g-2C permits both commercial and residential uses. In this i way it is sirnilar to "C" Commercial, which was the zoning of the block between Cleveland and Finn along with most of Grand Avenue under the old zoning code. When the apart- � ment building containing the dental office was rezoned from "C" Commercial to RM-2 in 1975 the dental office became nunconforming. Under B-2C zoning both the apartments � and the office would be conforming uses. tVluch of the market for more commercial space at Grand � and Cleveland would come from St. Thomas College, which occupies the north half of the block bounded by Cleveland, Grand, Finn, and Summit. The south half of this block is a natural place for cornmercial growth. � The three houses at the southwest corner of Grand and Wheeler, which includes Pied Piper Toys (1752 Grand) and the two � houses between that and Wheeler (1738-1746 Grand), are now zoned B-2. Pied Piper Toys is in a converted house. The other two houses represent potential commercial space. � It is exactly the kind of situation B-2C was designed for. The three lots should be rezoned from B-2 to B-2C. Rezonings to RM-2 Multiple-Family Residential � Recommendations 13. The B-2 zoned residentiai area on the north side of � Grand east of CleveIand should be rezoned to RM-2. 14. The B-2 zoned apartrnent buiidings between Cambridge � and Wheeler, at 61 Cambridge, and at 25 S. Wheeler should be rezoned to RM-2. � � 26 � � � � 15. The two houses in the middle of the block between Fairview and Wheeler (1769-71 and 1770 Grand) should be rezoned from B-2 to RM-2. � 16. The f our houses f acing Wheeler on the northeast corner of Grand and Wheeler shouid be rezoned from B-2 to � R M-2. In 1975 the eight lots immediately east of the 7-11 store on the northeast corner of Grand and Cleveland were zoned � B-2 to provide space for commercial growth. There is currently no commercial use on the eight lots: the area is entirely residential. The three easternmost lots in the area have � recently been rezoned to RM-2 to allow the construction of a new apartment building. � There are two fourplexes and three single-family homes on the five lots still zoned B-2. All five of these structures are substantial and well maintained, and it is unlikely that any of them would be converted to commercial use. Because � of this, as well as because of the physical separation between this area and the main part of the Grand and Cleveland com- mercial area, the five lots do not well serve the function ' of providing good space for commercial expansion. Under the current B-2 zoning the residential use of the five � structures is not conforming. A commercial structure in the area could have a negative effect on the use and value of the remaining residential structures. The B-2 zoning could also cause problems for the sale of the existing structures � if they contain more than the original number of units, as has been the case with the apartment building at 61 Cambridge, which is also zoned B-2. Lots 28 through 32, Block 2, Rose- � dale Park Addition (the five lots irnmediately east of the 7-11 store on the northeast corner of Grand and Cleveland) should be rezoned from B-2 to RM-2. � On the block between Fairview and Wheeler, the two houses in the middle of the block are zoned B-2. Both are surrounded by residential land use and zoning and are not a part of a � commercial cluster area. Both are well maintained, substantial houses and are unlikely to be converted to commercial use. The house on the north side of the street is set back quite � a bit rnore than the apartment buildings on either side of it, making it even less appropriate for cornmercial use. The conversion of either house to commercial use could have a negative irnpact on the value of the adjacent residential � property, and both should be rezoned f rom B-2 to RM-2. � , 27 � � The apartment buildings on the block between Cambridge � and Wheeler (1704 Grand through 1726 Grand on the south side of Grand and 1727 Grand on the north side), as well as � the apartment buildings at 61 Cambridge and 25 South Wheeler, are not conforming uses under their current B-2 zoning. They do not well serve the function of providing good space � for commercial expansion, and it is unlikely that any of them would be converted to commercial use. The current B-2 zoning has caused problems for the sale of the building at 61 Cambridge. All of these buildings should be rezoned from � B-2 to RM-2. The four houses facing Wheeler on the northeast corner of � Grand and Wheeler are currently zoned B-2. They are not a part of a commercial cluster area, and there would not be adequate space for off-street parking if the houses were � converted to businesses. The four houses should be rezoned from B-2 to RM-2. Rezonings to OS-1 Office Service � Recommendations 17. The house at 1725 Grand should be rezoned from B- � 2 to OS-1. 18. The commercial structure at 1418-1420 Grand should ' be rezoned from RM-2 to OS-1. The houses at 1725 Grand (Home Team Realtors) is currently � zoned B-2. Located between an apartrnent building and the Ramsey Junior High playground, it is unlikely that the house would ever be converted back to a residence. Its current , use as an office, an OS-1 use, is the most appropriate use for the house, and it should be rezoned from B-2 to OS-1 Office Service. The commercial structure at 1418-1420 Grand, which con- � tains a beauty shop and a new dental office, is currently zoned RM-2. The building's current use is nonconforming under � its RM-2 zoning. When the use of the building changes, unless it is changed to a residential use, a Change in Nonconforming Use Permit must be obtained from the Planning Commission. � The time and expense such a permit involves, both for the city and the owner of the building, is not justified because it is unlikely that the building will ever be converted to a residential use. The existing office service use of the building � is reasonable, and the building should be rezoned from RM- 2 to OS-1 to make such use conforming. , � 28 � � � Rezoning To B-1 Local Business Recommendation � 19. The commercial structure at 1460 Grand should be rezoned from RM-2 to B-1. � The cornmercial structure at 1460 Grand (Grand Additions) is currently zoned RM-2. Every time there is a proposal for a different B-1 use for the structure the owner has to � ask the Planning Commission for a Change in Nonconforming Use Permit (six times between 1978 and 1980), which costs both the owner and the City time and money. Since B-1 uses � are logical and reasonable uses for this structure, such a request would not be denied. The property should be rezoned from RM-2 to B-1. � Rezoning to PD Planned Development Recommendation � 20. If the block bounded by Macalester, Grand, Cambridge, and Summit is redeveloped as proposed by High Winds, � it should be rezoned from R-3 and B-2 to PD Plannec� Development. If the block bounded by Macalester, Grand, Cambridge, and ' Sum mit is redeveloped, it should contain at least as much commercial space as currently exists on the block. It should include the development of housing, as well. The development , of fairly high density housing in such a situation, if done carefully, can provide interesting and desirable housing as well as a market for the commercial space on the block. � Since peak hours for residential and commercial parking demand are different, parking can be shared. Generally, the Summit Avenue side of this block should be � residential and the Grand Avenue side should be commercial with apartrnents above. Parking could be provided in the middle of the block. � The PD Planned Development zoning classification is intended for exactly this type of situation: to provide flexibility for � the kind of development being proposed by High Winds while insuring conformance with the City's Comprehensive Plan and zoning code. If this block is redeveloped as proposed by High Winds, it should be rezoned from R-3 and B-2 to � PD Planned Development. � � 29 � � PLANNED DEVELOPMENT AREA REQUIREMENT � Re co►n r�lenda tion � 21. The Planned Deveiopment area requirement should be changed from 3.5 acres in size to 1.5 acres in size. It is not �:��.� intent of the PD Planned Development District � to be used for unrelated parcel-by-parce! rezonings in order to relieve a small tract of restrictions applying generally � in the area as a whole. Rather, the intent of the PD District is to provide more flexibility for unique and creative develop- ments, particularly mixed use developments, while ensuring , that the developrnent will result in an environment that is desira�le and in harmony with the general surrounding uses. To accomplish this, the Planned Development process encourages community involvement during the formulation of development � guidelines and specifications, and the final development plan must be approved by the City Council. The zoning code also requires that the area of a Planned � Development district be not less than 3.5 acres in size. The block for which High Winds is considering a Planned Development is 2.9 acres in size. Yet, the creative, mixed use development � being proposed is exactly the kind of development for which PD zoning is intended. The 3.5 acre Planned Development area requirement is too large. , Another block on Grand Avenue West may also be appropriate for a PD type of devel�pment: the block bounded by Grand, , Syndicate, Summit, and the Short Line. This block is about two acres in area. In this case, housing has been talked about for the Summit side of the block, with commercial and res- idential space on the Grand side of the block, and a parking � rarnp in the middle of the block. The parking ramp could be shared by both the commercial and residential uses on the block as well as by tVlount Zion Temple across the street. � The Planned Development area requirement should be changed from 3.5 acres in size to 1.5 acres in size. � � � � 30 , � � � B-2C SIGN REGULATIONS Recon1mandation � 22. 'lhe sign regulations for the B-2C District should be changed to contain sign restrictions similar to B-1, � to prohibit pole signs, and to require that sign illumination be operate� oniy until one hour after the close of a business day. � The intent of the new B-2C CommunityBusiness (Converted) zoning district is to provide flexibility in the mixing of res- idential and business uses while protecting the residential � visual character and open space that is important for the enjoyment and value of residential property. To that end, a residential front yard building setback is required, and parking is not allowed in the front yard. � As currently written, signs in a B-2C zone are regulated the same as signs in B-2, B-3, and ES Expressway Service zoning � districts, except that no advertising signs (billboards) are perrnitted in the B-2C district. The types of businesses that locate in B-2C districts, however, because the types of � businesses that tend to generate the most traffic are not permitted and because of the amount of space available in the typical converted house, are more sirnilar to the types of businesses perrnitted in OS-1 and 8-1 business districts. ' Sign regulation is more iinportant in B-2C than in any of the other business districts because of the unique mix of , residential and commercial uses allowed and because of the intent to maintain residential visual character. The existing B-2C sign regulations reflect this with the special � provision to not perrnit advertising signs. Advertising signs are not permitted in OS-1 and B-1 zones, either. Signs in a B 2C district should be regulated as in OS-1 and B-1. � While the B-2C zone requires a front yard setback (typically 25 feet) in order to protect residential visual character and does not allow parking in the front yard, it does allow pole � signs. The bottom of a pole sign, by definition, is at least 10 feet above the ground. Allowing pole signs is not con- sistent with the intent of the B-2C district to protect res- idential visual character, and is an oversight. Pole signs � should not be perrnitted in the B-2C district. � � � 31 � � The Minnesota State Energy Code states that sign illumination � may be operated only until one hour after the close of a bus- iness day. Because of the proximity and mix of residential � and commercial uses under B-2C, this regulation is especially important in B-2C zones. The sign regulations for the B-2C District should be changed to require that si�n illumination be operated only until one hour after the close of a business � day. � � � � ' � , r � � � � � 32 � � V. ACTION PLAN � � PROJECT WHO IS TIMING KEFERENCE FOR RESPONSIBLE EXPLANATION � 1. Grand Ave. West Planning Commission, 1983 IV. 10-20 on pp. 20-29 40 Acre Study City Council , rezonings 2. Reduction of PD Planning Commission, 1983 in Zoning Text IV. 21 on p. 30 area requirement City Council Amendments IV � 3. B-2C sign regu- Planning Commission, 1983 in Zoning IV. 22 on p. 3 j lation changes City Council Text Arnendments V , 4.Shared use agree- District 14 Council, 1983 III. 4 on p. 12 ment for Minne- GABA � sota Federal parking lot 5.Require parking Planning Commission, 1983 in Zoning III. 7 on p. 16 � for increased City Council Text Amendments V intensity of use, outdoor � restaurants 6.Deterrnine legal Planning Commission 1983-84 III. 9 on p. 17 nonconforming � and shared use status of college parking ' 7. Enforce college Housing and Building Ongoing III. 8 on p. 17 parking require- Code Enforcement , rnent , ' � , � � 33 APPENDIX A � � BUSINESS SURVEY � The Grand Avenue West Business Survey results help to gauge � the overall commercial climate of Grand Avenue, and to establish the needs of businesses. They have been used in the development of appropriate goal and objective statements for Grand Avenue, and aided in the development of sound � proposals for the Avenue's future. The owner or manager of each of the 95 businesses in the � Grand Avenue West Study Area was contacted in person during May and June of 1982. Surveys were completed for 92 of the businesses, a response rate of 97%. the following is a � summary of the results. 1. Do you own or lease your building? Own: 33% , Lease: 67% No response: 2 � 2. Does your business have enough floor area? Enough: 73% , Too little: 21% Too much: 69i6 No response: 5 , 3. How many years has your business been located on Grand Avenue? , Average number of years: 17 4. Where did your business get started? , On Grand Avenue: 78% Moved to Grand from another location: 22% ' No response: 4 5. If your business moved to Grand from another location, � what was your previous location? St. Paul/University Avenue: 18% St. Paul/Downtown: 14% � St. Paul/Other: 369b Minneapolis: 99b Other: 2396 , No response: 0 � 34 � � � � 6. What factors led you to locate on Grand Avenue? Viable commercial area: 52% � Reasonable rental or building costs: 3096 Attractive neighborhood: 33% Safe neighborhood/commercial area: 13% � Sufficient parking for customers: 1396 Other: 23g6 No response: 8 � 7. Where are the ma'loritY of your custorners drawn from? ALL RETAIL ' Within 2 miles: 58% 859�6 Beyond 2 miles: 42% 1596 ' No response: 3 8. Is your business more or less profitable than two years ago? , More profitable: 39% Remained the same: 27% ' Less profitable: 34% No response: 6 9. What major improvements have you made to your place , of business within the past 2 years? Exterior building improvements: 22% ' Interior rernodeling: 38% Purchased capital equipment: 229i6 No improvements: 33% ' No response: 3 10. If you made major improvements, have they increased your profit margin? � Yes: 56% No: 44% ' No response: 44 11. If you made major improvements and lease, who financed , these improvements: Business: 7496 Landlord: 26% , No response: 56 , , 35 � � 12. What changes in your business are you anticipating in the � next 5 years? Building �xpansion: l09�6 � Moving to a new location on Grand: 4% Moving off of Grand: 1% , Adding inventory: !0% Changing inventory: 10% Going out of business: 1% Other: 1396 � No changes: 55% No response: 9 13. What types of nearby businesses do you rely upon to gen- ' erate customers for your business: ALL RETAIL � Retail sales: 52% 58�6 Restaurants: 24% 31% � Services: 24% 17% Grocery: 22% 24% No response: 42 , 14. What types of activities do you consider detrimental to Grand Avenue or to your business? ' B-3 uses (auto repair, fast food, wholesaling) 45% B-2 uses (retail sales, restaurants, gas stations) 1% B-1 uses (grocery stores, hardware stores, banks) 496 ' Office uses (doctors, ins�urance, real estate) 0 Residential uses: 3°6 Other: 6% � None of the above: 43% No response: 12 15. What types of businesses would you like to see on your part , of Grand Avenue (open ended)? GRAND & GRAND & GRAND & GRAND & TOTAL � HAMLINE/ CAMBRIDGE FAIRVIEW CLEVELAND SYNDICATE Restaurants 3 7 5 1 13 , Retail 3 3 2 8 Small bus- 1 2 1 3 7 , iness/specialty Clothing 4 1 5 Office 1 1 1 3 � Drug store 1 1 2 Fast food 1 1 2 Food coop 1 1 � 36 ' , � 16. How do your customers get to your business? Average % by walking: 2096 � Average % by public transit: 10% Average % by automobile: 70% � 17. Does your business need more parking? � GRAND & GRAND & GRAND & GRAND & HAMLINE/ CAMBRIDGE FAIRVIEW CLEVELAND SYNDICATE , Yes: 10 (77%) 19 (79%) 3 (309b) 3 (60%) No: 3 (23%) 5 (21%) 7 (709b) 2 (40%) No response: 0 3 1 2 � 18. Would you possibly consider paying some form of assess- � ment for a shared parking facility? GRAND & GRAND & GRAND & GRAND & HAMINE CAMBRIDGE FAIRVIEW CLEVELAND , SYNDICATE Yes: 5% (50%) 14 (569b) 1 (10%) 4 (67%) ' No: 5 (509b) 11 (44%) 9 (90%) 2 (33%) No response: 3 2 1 1 � 19. Would you consider paying for off-street parking spaces for your employees? , Yes: 4% No: 96% No response: 14 ' 20 o u think h r ' r ' - . D yo t e e is a need fo visual and design improve � ments along Grand Avenue? ALL RETAIL , Yes: 57% 699b No: 43% 31% No response: 6 , , � 37 � � 21. Are you familiar with the City of St. Pau!'s financial � programs for small businesses? Yes, I have all the information I need: 1556 , Yes, but would like additional information: 14% No, send information: 459K � No, I am not interested: 259i6 No response: 8 22. What is the best method to involve business people with � planning and implementing improvements to the Avenue? Monthly newsletter: 51% ' Meeting of business people with planner: 40% Set up informational resource center through GABA: 3796 No response: 14 � ' ' ' � � , � , ' ' 38 � , APPENDIX B � , MARKET ANALYSIS The purpose of this preliminary market analysis is to esti- � mate the amount of additional convenience retail and personal service commercial space that can be supported along Grand Avenue West, from the Short Line to Cretin. � It is intended to aid in determining the best location for that additional space. It serves as a basis for land use and zoning decisions along Grand Avenue West. � This market analysis deals only with the market for con- venience retail and personal service businesses. These are the types of businesses that provide for the basic commercial , needs of the immediate neighborhood. Their primary trade area is generally within a 5/8 mile radius. Convenience retail and personal service businesses include the following: , CONVENIENCE RETAIL Hardware Stores � Food Stores Gasoline Service Stations Eating and Drinking Places ' Drug Stores PERSONAL SERVICE ' Beauty Shops Laundry and Dry Cleaning Photographic Studios , Miscellaneous Repair Services Motion Pictures Amusement and Recreation � This market analysis does not deal with the market for shopper goods (apparel, furniture, home furnishings, general retail) or business service (finance, insurance, real estate, , medical, legal). Unlike the businesses studied in this analysis, these types of businesses tend to serve a market area larger than the immediate neighborhood. Their market is not , so tied to a particular geographic area. The market for convenience retail and personal service � commercial space is based on the population density and income of the immediate neighborhood. To determine the market for commercial space in a particular commercial area, the purchasing power of the neighborhood must be � adjusted by the amount absorbed by competing commercial areas. � � 39 i 1 A separate market analysis was done for each of the 4 � major commercial areas on Grand Avenue West: Grand and Hamline/Syndicate, Grand and Cambridge, Grand and Fairview, and Grand and Cleveland. A market analysis � was atso done for the commercial area at Marshall and Cleveland because of the vacant commercial space there and the area's relationship to Grand and Cleveland. � The primary trade area for convenience retail and personal service businesses is defined as the area within a 5/8 mile � radius of the commercial area, adjusted for natural barriers such as the Short Line. This assumption is somewhat self correcting: if a larger radius were used there would be greater overlap with the trade areas of competing commercial ' areas. The purchasing power of each primary trade area was determined , using 1980 Census data for aggregate household income and the number of households in census tracts. The portion of census tract households in a primary trade area was ' determined using City land use maps. Because persons in college dorms are not included in households, 1980 Census data for persons in college dorms in census tracts was also used in determining the purchasing power of a primary � trade area. The portion of household income spent on convenience ' goods and personal services was calculated for each census tract according to the following table. The figures are based on Bureau of Labor Statistics 1973 Consumer Expenditure ' Survey data, which was updated according to changes in the Consumer Price Index. TABLE l: CONVENIENCE RETAIL EXPENDITURES BY INCOME � Average Household Convenience Goods Income Range as a percent of ' Average Income <$5,550 52.4% $5,550-17,565 35.39�6 ' $17,566-27,443 28.49i6 $27,444-39,011 24.59�6 > $39,011 18.0% � Source: Lukermann, Barbara,et al. "Assessment � of the Neighborhood Business Climate, Saint Paul." 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' .� � w � � �, � �- = w �n m � i i � dZa � o 000 � dU N � � � � � Z r-+ �+ w w � � v�c'r Z � ^� � � �n H , � Z � o° °o ° °° p, ¢ �w c�, o� °oo° ' � c.Y, Z.-.1 vi � ,, u¢� � � �� > w a ..i � � , a�- 3 w' "" ,«. w � w � w � � ��- � Z > o 0 00 ' u,] ¢p[L� o 0 00° U tL Z d , w C7QLL. M °�° � N Z w > O � 4+ 4+ Y i-' 4+ , V (.7 w w www "3 � �p' UN' N'�y' w � �. Z Z m O O O O O � � ¢�� 00 N � �O � c�Zd � C7'�U ° � �O0 c`�.� Z O ' Z w «� +� m w F- �«, w � � ZU � a� � Z ...1� o 0 0 0 0 ' i � i [il R:Z Q ?� �o o� mC7 d ��n � c� � , N O a � � w c , a v � a H u v o �' °i , ^ 'c v L � .� � � 0 V 0 C U 41 v ro 3 � ' ;-. a� n. vro � °u �n °' � u �y C� � •L Q21U � ' c c c L v U ctl y O O O v E C E � C G C C O O � O y � � � U U V U �. , � O O O c cu �\o, UUU +• +� . H y � H � X X � O y u� w � a � ' 43 � � There is also limited space for convenience commercial � expansion at Grand and Fairview. Houses that can be con- verted to commercial space offer much of the commercial � expansion space in the area. The amount and the type of commercia! expansion that can take place in such houses is limited. The amount of new commercial development at Grand and � Cleveland is limited by the zoning of some of the lots where commercial development would be likely to occur. Parking � problems in this area could also inhibit commercial development. Table 3 indicates that the greatest commercial development � potential on Grand Avenue West is at Grand and Cambridge. It is an area with substantial untapped market potential. It also contains underutilized land that could be reasonably used for the development of new commercial space and parking � without unreasonably affecting neighboring residential property. ' ' , , ' ' ' ' � � 44 , � CREDITS , � GRAND AVENUE WEST TASK FORCE Planning Commission � Sister Alberta Huber, Chair � District 14 Community Council Steven DeHart Mary Alice Krebs , Tom Levitan Grand Avenue Business Association � Dan Fourre, Voigt and Fourre Architects Jeannine Solin, Grand Avenue Ace Hardware � Mike Spahn, Grandview Pharmacy Macalester College � David Lanegran Saint Thomas College CPhilip DesMarais DEPARTMENT OF PLANNING AND ECONOMIC DEVELOPMENT � James Bellus, AICP, Director Peggy Reichert, Deputy Director for Planning �'; Lawrence Soderholm, AICP, Principal Planner � Allan Torstenson, AICP, Planner-in-Charge � � � � � a a 45 � , 6. THE LOCATION OF PARKING LOTS should be at the side or rear of commercial structures and have a minimum number of curb cuts. Access to parking lots on corners should be from the side street. Exsiting curb cuts within 30 feet of an intersection should be closed. 7. A COORDINATED DESIGN PLAN should be developed by an architect for each of the 5 major commercial nodes. A memorable unified visual image should be developed for each node through the use of repetitious elements: building materials, colors, awnings, the proportion of window openings, and sign locations. 8. A BUILDING FACADE ELEVATION should be reviewed along with a site plan when a new facade or change in an existing facade is part of a project requiring site plan review. 9. SIGNS on Grand Avenue should provide clear identification for the businesses on the Avenue, reinforce the positive image and identity of the Avenue, and reflect the pride � businesses take in the area. 10. A SPECIAL DISTRICT SIGN PLAN, with design provisions that build upon the unique character and identity of the Avenue, should be adopted for Grand Avenue. � � , � GRAND AVENUE DESIGN GUIDELINES � SUMMER, 1983 � � � � � ' � � � � � � PLANNING DIVISION �� DEPARTMENT OF PLANNING AND ECONOMIC DEVELOPMENT 1100 CITY HALL ANNEX SAINT' PAUL, MINNESOTA 55102 � 612-292-1577 � � TABLE OF CONTENTS � � I. I'NTRODUCTION-------------__.T____�_._�.___. __�_�_._._ ....��_�1 - � - ----_.__ _-_ II. LIGHTING--`�_.______.___�---------.----.--_._------- -- 3 � � III. TREES��_--------------_____.___.__��___.__.�.:.��._____�_.____._ --5-- � IV. PARKING LOTS------------._�_.__-- ----------------------__._». _._ 7 �' - ------�--__-----------------------------._ ___..__- _- V. SIDEWALKS 14 � VI. BUILDING FACADES ------'.�__. __.__�__._-_-_.__---�.-.--.---_------._._-15_ , ---__..____.._______ ___-------------- _.�----------- � VII. SIGNS 17 � V'III. ACTION PLAN______-_-----.-------- --.---________.�-----._.__�___-.��-- 21 � � � � � � � � I. INTItODUCTION � � Design choices, be they deliberate or inadvertent, have a major impact on the character of Grand Avenue. They also � have a lot to do with the quality of Grand Avenue as a place to live and the viability of the Avenue as a place to do business. � Good design on Grand Avenue has a positive effect on more than just the value of property along the Avenue. Because Grand Avenue is a visible and widely traveled street, improve- ments to it enhance the public image and economic value � of a much wider surrounding area. T'he Avenue is the principal public space of the neighborhoods along it. Grand Avenue design should build on and cornplement the image and identity �� of those neighborhoods. It should help to provide structure, image, and pattern to the Avenue and areas along the Avenue. � Good design is good for business. It can help to build an image of Grand Avenue as a special area and aid in advertising the Avenue as a whole. It can help to build an identity for individual commercial cluster areas that custorners will � remember and to create the desirable atmosphere and pleasant surroundings that customers are drawn to. � The special character of Grand Avenue is the result of such things as the old street car line, the business clusters, the large apartrnent buildings, the colleges, and the trees that line the street. It has been built through the work of the � Grand Avenue Business Association and events such as Grand Old Days. And it can be enhanced by deliberate design choices that create greater continuity, a sense of pattern and inter- � connectedness. The pattern that gives Grand Avenue its special character � and identity and helps to make it an understandable place should be strengthened. That pattern is based on a series of commercial clusters separated by areas of apartment buildings. A series of landmark places and buildings add differentiation � to the pattern: starting with St. Paul Seminary on the western terminus of the Avenue, continuing with the Grandview Theater, Macalester College, The Lexington Restaurant, Victoria � Crossing, and finally the hill that is a gateway into downtown. These are things that should be highlighted. For example, commercial nodes can be highlighted by pedestrian•oriented decorative lighting such as that used at Victoria Crossing. � � � � 1 � ,� Not only places, but the names of places, can give identity � and legibility to Grand Avenue. The use of cross street and neighborhood names, names such as Victoria Crossing, Crocus Commons, and Mac Market, can make the location of commer- � cial areas clear to potential customers. Through the use of such names, neighborhoods can give identity to commercial areas and, because of their visibility, commercial areas give identity to neighborhoods. The names serve to heighten a � sense of place. There is a symbiotic relationship between neighborhoods and neighborhood commercial areas. Well designed and co- � ordinated improvements to a neighborhood commercial area can visibly define the flavor of the neighborhood as well � as improve the business climate of the commercial area. Mechants working together to achieve what is in their common interest can create a business climate much better than if � they are uncoordinated, sometimes conflicting actors each pursuing his individual interest. In the wider view, the common interest is the individual interest. � In order to achieve the kind of ualit mixed use stri ro- op se in t e desi n uidelines t at fo low, the Gran Avenue � Business Association must lay a mana ement and coor i- nating role. The basic functions of t e Grand Avenue Business Association are to promote the Avenue to customers, to mediate disputes among businessmen, to get all merchants � along the Avenue involved in making improvements to imp- lement a coordinated design plan, and to exercise a degree of control over how merchants handle sensitive problems � such as unattractive signs. � � � � ,� � 2 � � ;� � II. LIGHTING � � Recommendation 1. The five major commercial nodes on Grand Avenue should � be highlighted by pedestrian-oriented decorative lighting. a. GABA, in conjunction with the High Winds development, � should submit a Neighborhood Partnership Program proposai for the Grand and Cambridge and Grand and Fairview commercial areas. The proposal should use investments in private property, particularly investments � for improvements to conform with the Grand Avenue Design Guideiines and Special district Sign Plan, to leverage NP fund money for decorative lighting. � b. GABA, in conjunction wtth the redevelopment of the eastern corners of Grand and Grotto, should submit � an NPP proposal similar to the above to leverage NP fund money for pedestrian-oriented decorative lighting in the commercial area centered on Grand and Grotto. � c. GABA shouid submit a sirnilar NPP proposal for pedestrian- oriented decorative lighting in the Grand and Lexington commercial area. Private investments should emphasize � improvements to conform with the Grand Avenue Design Guidelines and Speciai District Sign Plan. Unified for(n and pattern in street elements such as lighting � and trees can do a great deal to create a sense of pattern and interconnectedness for the Avenue. Decorative lighting with a consistent design and pattern can highlight the special � character of Grand Avenue and its pattern of distinct residential areas and commercial nodes. T'here are five major commercial nodes on Grand Avenue: �, Grand and Grotto, Grand and Victoria, Grand and Lexington, Grand and Cambridge, and Grand and Fairview. It is in these five commercial cluster areas that the largest number and � variety of businesses should exist, that most commercial expansion should take place, and that shared use parking lots should be developed. Grand Avenue's five major com- � mercial nodes should be highlighted by special pedestrian- oriented decorative lighting. � � � �. 3 � ,� The decorative lighting used in the Grand and Cambridge � � and Grand and Fairview commercial nodes should be the same double green lantern fixture on a fluted pole that is being used in the Selby and Western commercial area. Green lantern � style fixtures are used almost exclusively in the neighborhoods around Grand Village, and are a well known part of the area's image. However, the street lights on Grand Avenue in this � area are mounted on power company poles. High pressure sodium lights in double lantern style fixtures set 25 feet from corners and 65 feet apart should be used to highlight the Grand and Cambridge and Grand and Fairview commercial � nodes, replacing the existing street lights. I� The pedestrian-oriented decorative lighting used in the Grand � I and Grotto, Grand and Victoria, and Grand and Lexington � commercial nodes should build on the pattern set at Victoria I Crossing and St. Albans Crossing. In these areas the pedestrian � � oriented decorative lighting used to highlight the commercial I� nodes will not replace the existing street lights, which are II on modern 30-foot-high Daviet Arm style decorative poles. �, The use of low-level mercury vapor lights in the new pedestrian � I oriented fixtures can correct for the coloration of the high pressure sodium street lights and highlight the storefronts. The style of the pedestrian oriented decorative lights at � , Victoria Crossing and St. Albans Crossing is compatible with Ithe modern style street lights. i The City pays for a basic level of street lighting. The op- � _ erating costs of additional lights will be paid for by fronting property owners. In Grand Village, since the new green lantern fixtures would replace the existing street lights, the operating � costs for half of the poles and a quarter of the lights will be paid for by the City. On the eastern part of Grand Avenue, where fairly new street lights already provide an adequate � level of lighting, fronting property owners will pay for the operation of all additional decorative lights. � � � � �. 4 ,� � III. TR EES � � Recorrunandation 2. Grand Avenue should be lined with trees for its entire � length, including the commercial areas where trees are currently missing. a. The District 14 Community Council should submit � an IVPP proposal for stump removal and tree planting on boulevards along Grand Avenue West. � b. GABA shouid submit an aPplication for Small Business Administrati�n Parks and Recreational Area Devetop- ment Grant funds for tree planting along Grand Avenue. � Tree planting should include commerciai areas where tree grates would be needed and where design work would be needed to f it the trees into proposed lighting and facade irnprovements. The submission deadline � is June 15, 1983. c. All NPP proposais for decorative Iighting should in- � clude the trees recornmenaled for the area. A feature uf Grand Avenue that distinguishes it from most major mixed use strips, one that is important to its image �, as a place with special character, is that it is a tree lined and generally well landscaped avenue. 1'his feature of the Avenue, which is threatened by the loss of trees in recent � years, should be preserved. Trees buffer the wind and provide cooling shade, especially � important in areas of a lot of pavement such as major commercial nodes and parking lots. They help to create a pleasant, desirable atmosphere for the entire Avenue. Trees are another important unifying and coordinating street element on Grand Avenue. �, More than being preserved, this unifying and distinguishing feature of Grand Avenue should be strengthened. � New trees should be planted in distinctive groups, as recommended by the City's Street Tree Master Plan, that vary along the length of the Avenue. The pattern recommended in the Street � Tree Master Plan is a series of 3 to 4 blocks planted with a single tree type followed by another series of 3 to 4 blocks planted with a different single tree type. This pattern produces a uniformity of color and textural quality in each neighborhood; � it helps to differentiate between areas and add structure to the Avenue. � � � 5 � :� Because building setbacks restrict the area for tree growth, � and in order to avoid covering up building facades and signs, trees planted in the five major commercial nodes should be more columnar and open-leaved than trees on the rest of � the Avenue. Because of their shape and the density of their foliage, the trees to be planted in the major commercial nodes should also be spaced closer together: about 20 feet apart. They should be planted in tree grates to avoid infringing on the pedestrian area. � � � � � � � � � � � � � 6 � � IV. PARKING LOTS � � Recornmendations 3. Extsting parking lots should be ef f icientiy useal through � shared use by businesses with different peak hours. The Minnesota Federal and Muska Lighting parking lots should be used by other businesses in the evening. � a. GABA, the District 14 Community Council, and the Summit Hiil Association shouid encourage businesses to work out agreernents for the shared use of parking � lots and aid in working out such agreements. 4. Parking lots should be located to the side or rear of com- � merciai structures and have a mini►num number of curb cuts. Access to parking lots on corners should be from the side street. Fxisting curb cuts within 30 feet of ari � intersection should be closed. a. These recommendations should be enforced through the City's site plan review process. � 5. As a minirnum, all parking lots should be brought up to the Iandscaping standards of the Zoning Code. � a. Changes in existing parking lots to conform to this and other recommendations should be a part of the � NPP proposals for decorative lighting. The availability of convenient, safe, and well landscaped custorner parking lots has a substantial effect on the business � climate of Grand Avenue. Nearby, readily identifiable parking is important for the success of businesses. Most of the respon- dents to the Grand Avenue Business Survey indicated their � business needed more parking, and parking was the item most often mentioned as their business' major need. � The availability of parking has an effect on the desirability of Grand Avenue as a place to live, as well. Competition for a limited number of on-street parking spaces is the most cornmon point of conflict between residents and businesses. � � � � � � �Ze comm�ndQ.d 1'erkin Lot D�si n , 9 9 � �HADE'TREES G�4 N 0 f�VE. � pELd;ATIVE LK�F►T/NCo �rs 3roP - • • • � Si DEW . . . . , • $ , �� I . • � � l � l I I � I I � ZORNA HE/Y7�►4 tM1ND/GqPOED S Eve,e�iv 'ne�5 �iq,e�NG � � -n�s . V�j � � Q Q[ � � I 0 a � � T ' ' � � I � � . • � D . . __� - - � -- � � � AtLEY - - - -- -- � � 95 5p�c� 5hared use. pa.rkin9 l o-I- �-�'s� � for Gr$nd art� ViCtoriS � � � � � � s � � � � The development of shared-use parking lots in the five major commercial nodes on Grand Avenue is the best way to provide sufficient and convenient off-street parking for businesses � along the Avenue. The two large parking lots at Victoria Crossing are good examples of shared-use parking lots. The one at the southwest corner of Grand and Victoria is shared by a variety of businesses. Because the businesses have different � peak hours, adequate parking can be achieved with fewer spaces than if each business had its own parking lot. The parking lot on the north side of Victoria Crossing is shared � by businesses and a church. Since peak hours for a church are almost completely different than those for businesses, this is an excellent example of the efficiency of shared-use � parking lots. The most desirable way to create shared-use parking lots is by simp�y making better use of existing parking lots that � are underutilized� parking lots that are only partially filled auring e—non-peak hours of the business they serve. Parking lots that are now closed in the evening, such as the Minnesota � Federal and Muska Lighting lots, would be particularly good as shared parking lots. Some of the businesses that have the greatest need for additional parking, such as restaurants � and the theater, have their peak hours in the evening; res- idential demand for parking is also highest in the evening. The other way to create shared-use parking lots is by developing � completely new �arking lots on vacant or underutilized parcels. In the two major commercial nodes with the most serious parking deficiency, Grand and Grotto and Grand and Lexington, � clearing certain parcels to make room for such lots may make economic sense: the value of the increase in business generated by the parking lot for the businesses it serves may be greater � than the value of the land for other possible uses. The creation of shared-use parking lots, whether through better use of existing parking lots or the development of � new ones, is dependent on the cooperation of the businesses involved. The benefit of such cooperation for the general business climate of an area as well as for individual businesses � is the kind of thing that can be achieved by merchants working together to achieve what is in their common interest. Bus- inesses in a commercial area are interdependent: they gen- erate customers for each other, the image of each business � reflects on the area as a whole, and the success of each business is important for the area as a whole. Shared use of a parking lot means the cost of the lot is also shared. � Efficient use of each parking s�ace means that adequate par ing, so important for business success, can be provided at the lowest possible cost. It also means that adequate � �arking can be'provided on the smallest amount of land, makin more land available for new businesses and for the expansion of existing usinesses. � 9 �e comm�ndQ,d �erkin9 Lot D�si9n � q5 5pacr� shar.ed u5� par�ing lof� for Grend and Cxr�ito. . � � T m° • , I . N � � � O ^ ,� � ' I � � � • - -- � � � • , � NouSE � H ` � I i I ` I � H � ' 3HADE� . SODGL�D � � 7XEE5 ao • • �/ �� _ d � 70 space Parking �� . e - _- S,�WA 3 _ . (Ot �or Grand B�5 5�� -;ys, er►d 5yndic3�iz. Gl�tNO Al2. ' ' i EVERGREEN �s j � I/�Gf�TE fFLLFy TREES DL�u✓EKY � , � AREA RT t[' . � . 18�AR QF �J 'I _ ,Sui�o/NG T ' � � � � , RFO aWL 8ui�tyN6 � AcGE55 FRoH StG�STRF.ET -� � 1'� � � � � � , ' � S A�GOKAl7 V6 GN/V GNT Ll6N7S � ��r — . �o,�n►�K • 1 . . � • • j �o i`�s � _. • • ,� • ' �"�57D Gi�}ND AVE. '! lo � � � � Parking lots can be of great benefit to the businesses they serve and are often essential for the success of those businesses. But parking lots are not without negative side effects. They � tend to be ugly, unpleasant places; they are inhospitable and dangerous for pedestrians; they break up the building line of the Avenue and can be detrimental to its image. T'o � provide adequate parking without creating a "sea of cement", the favored way of providing adequate parking is through maximum use of existing parking facilities. The detrimental � effects of parking lots can �.iso be minimized through care in their location and landscaping. Parking should be located to the side or to the rear of com- � mercial buildings. Parking in front of buildings disrupts the ,, continuity of building facades; it makes the buildings and the businesses in thern less visible and leads to confusing � pole signs. Parking to the side of commercial structures is preferable: the building can be located up to the sidewalk, giving the businesses good visibility and pedestrians good � access; the parking is also visible from the street, making it feel safe and easy to identity with the businesses it serves. For pedestrian and vehicular safety and to allow a maximum � of on-street parking, the number of curb cuts should be min- imized. Access to parking lots on corners should generally be from the side street, where there is less conflicting ve- � hicular and pedestrian traffic, and curb cuts should be kept away from the corner. The zoning code requires that curb cuts for new parking lots be at least 30 feet from the point � of intersection of curb lines of two or more intersecting streets. Some curb custs for existing parking lots do not conform to this requirement, however, and cause traff ic safety problems. Such curb cuts should be moved to at least � conform with the minimum requirements of the zoning code or closed. Using the Red Owl parking lot as an example, the curb cut nearest the corner and in the bus stop area � causes traffic safety problems at the corner of Grand and Syndicate and should be closed. Service functions and access for such activities as goods � delivery and garbage removal should be separated from the customer parking area. Garbage should be screened. Service access and employee parking should ideally occur off of the � alley. � � � 11 � � For any new parking lot, the zoning code requires a minimum � of one square foot of landscaped area for each ten square feet of paving in order to reduce the detrimental effect of the parking lot on adjacent property and the public right- � of-way, reduce the visual glare and heat effects of large expanses of pavement, and provide areas for the retention and absorption of storrnwater runoff. In addition to perimeter landscaping, new parking lots for more than fifty (50) cars � must contain planted islands. Many existing parking lots do not conform to the landscaping standards of the zoning code. As a minimum, all parking lots should be brought up � to the landscaping standards of the zoning code. Parking lot landscaping has a tremendous impact on the image � and desirability of individual commercial areas and the street as a whole. Shade trees are the most important element = for parking lot landscaping. They soften large paved areas, provide cooling shade for custorners and their cars, and help � create the desirable atrnosphere and pleasant surroundings custoiners are drawn to. Trees between a parking lot and the street can hel to maintain the continuit of the buildin � facade line. Shru s, sod, and groun cover plants should a so be used in the landscaped areas. � � � � �. � � � � 12 � � • � . � � 1 1 / � • � / _ �•—! � — : —�� ■ � � � ■ ■ ■ ■ �t �� i " - . � s7�Cr�� `� ��;��:� !.!�"� I � ��L I 11 I_I_I � �_ q ;.i�� ..,�'� r�� N�_J- � �_ � I �=._�ao�..��<<►��,� _��.:.��:��.. ..,,r��..:. �,�a�� . , . , , , .. . . .. � � � i � � : � . r►� • ' �� / � 1 1 � 1 1 1 / � � . ��r 1 . �• N�,•�s, . , � � � ��I � � ',' �►m " � - �'�, �! �� .�°..� ,�. �� r ; �:n a�� a�� p �:�i� ��:,, ��!�v �-� �� ,.- , ��,,, � __��i ,� ,.�..s . ��a,�e� ',� �' -°� ' �`: �I ____�¢'� � ' :�',�,� --- �� u�i�� '��I��s��$�� irH � �i=u� [ur�) . . � � � .•� V. SIDEWALKS � � Recommendations � 6. Sidewaiks s)lould have a clear width of at least 6 feet. Sidewalks are another design element that can help to high- � light and identify the major commercial nodes. They should be coordinated with trees, lighting and facade improvements. Sidewalks should be shaded by trees and protected by canopies � in commercial areas. They should have a clear width of at least 6 feet; trees should be planted in tree grates to avoid infringing on the pedestrian area. Pedestrian oriented street � lighting should be used along sidewalks in the major commercial areas, with sirnilar lighting to illuminate doorways and alcoves. � � � � � � � � � � � � 14 � � VI. BUILDING FACADES � � Recunirnendation 7. A coordinated design pian should be developed for each � of the five major commercial nodes. A memorabie unified visual image should be developed for each node through the use of repetitious elements: building materials, colors, � awnings, the proportion of window openings, and sign locations. a. Such a plan shouid be a part of each NPP proposal � for decorative Iighting. Private investments in facade and sign irnprovements as part of an NPP project shouid be in conforrnance with a coordinated design plan. � b. The recommendations of this report for �'acades, as well as those in individual coordinated design plans, shouid be enforced through the site plan review process �, when possible. When a new facade or c}iange in an existing facade is part of a project requiring site plan review, an elevation of the facade shou2d be reviewed � along with the site plan. Buildin� facades are particularly important for the image � of the Avenue. They are landmarks and provide points of reference. � Grand Avenue is usually viewed from vehicles. Because of the speed of travel, buildings are seen as groups and individual facades are less noticed. However, most of Grand Avenue is a chaotic, undifferentiated mix of design that provides � no clear, memorable image or pattern. The development of coordinated design motifs with readily understandable patterns would make each business more visible and give � Grand Avenue a much stronger identity. A coordinated design plan should be developed by an architect � for each of the five major commercial nodes on Grand Avenue. A memorable unified visual image can be developed for individual commercial areas and the Avenue as a whole through the use of repeticious elements: building materials, colors, awnings, � the proportion of window openings,and sign locations. Gen- eral guidelines for each of these elements should be consistently followed along the entire Avenue. More specific guidelines � for signs, colors, architectural styles, cornices, building materials, and other physical details should be developed as part of each individual commercial area design plan. � � � 15 � � Buildin materials have a considerable influence over the � qua ity of commercial areas. .qs a general rule, it is best to stick with the ori inal desi n and materials of each buildin rather than attem tin to c an e them and to highlight the � original in ivi ua ity of eac building. Generally, there is a fairly cornmon set of original building materials in a com- mercial area. When additions to buildings are made, building � materials that match or compliment those of the existing building should be used. Sheet metal and other materials of a temporary look should always be avoided. Color can be used effectively to tie together a number of � u�ding shapes. Architectural schemes are most effective when they contain only one or two real colors. Neutral colors � (whites, greys, and blacks) tend to emphasize building form more than real colors. Strong or bright colors should be reserved for signif icant detail, entryways and doors. Roll-up canvas awnings should be used as a unifying element � in the majur cornmercial areas. Awnings provide other ben- efits as well: they can allow sunlight into a building in the � winters and block it in the summer, and they can provide shoppers protection from rain when needed, making the area a more pleasant place to shop. � Buildings should face the Avenue, with windows looking out onto the Avenue for view and display, and buildings should not be set back from the Avenue to provide parking in front ' � of the building. Entryways, which are remembered by cus- tomers and too often poorly treated in remodeling, should be recessed from the facade and receive special color and � lighting accent. The traditional pattern of window o�enings in cornmercial buildings creates continuity in cornmercial areas and should be followed. First floor windows facing � the street should be large and continuous and should not be covered up. Upper floor windows should be smaller, with a more dotted rhythrn. Si ns oriented to vehicular traff ic should be located on the � sign bands of building facades. The heights of signs should be rnatched, and they should not cover up architectural trii�n � and detail. Building addresses should be consistently located above entry doors; if that is not possible, they should be on the entry door itself. � � � 16 � � � � Studies have shown that the most im ortant information on a business si n is si�n 1 the name of t e usiness. Extra information ten s to reduce t e impact of the sign. Extra � si�ns in a commercial area, signs advertising things other than the buisnesses in the area, also reduce the impact of the business signs. They make it less likely that the signs � advertising the businesses in the area will be seen and re- membered. A person who is just driving down the Avneue, not looking � for a specific location, will probably see as much with his subconscious mind as conscious mind. The signs in this case beco�ne reminders: visual images of services offered on the � Avenue. The stronger and more concise the message, the more the driver will remember. The information that signs on Grand Avenue should clearly � and concisely provide is identification of the businesses there. The clutter and chautic diversity often created by sinage in cornmercial areas detracts from the effectiveness of signs � in providing that information. The Grand Avenue Special Sign District Plan should provide � a means to prevent the clutter of signs not providing the most irnportant information, ti�e names and location of the businesses on the Avenue. The plan should provide a unified ` set uf design standards for signs in order to make signs more � legible and to increase their irnpact as well as to create a more desirable and memorable image for Grand Avenue. � Advertising signs, signs advertising things other than the businpss on the premises, should be phased out on Grand Avenue. Business signs should be locate at a uniform height � and location on buildings to make it easier for them to be found and read, and graphics should be simple and clear. Signs oriented to vehicular traff ic should be located on the sign bands of building facades, and they should not cover � up architectural trim and detail. In general, words and symbols should take up no more than � 40 percent of the total area of a sign. Signs with light letters on a dark background are easier to spot on a busy street. Colors used in signs should be compatible with the building � and surrounding environment. To maximize the effect of the graphics, the number of colors should be minimal. Lightirig of signs should be carefully considered; indirect and subdued lighting is preferred. � � � 19 � � Clear, easily found building addresses are important for � customers to easily find businesses. Building addresses should be consistentl located above entry doors; if that is not possible, �t e�should be located on the entry door itself. All address sign�-s siiould be numerical instead of written and should be clearly visible. Attention should be paid to the contrast of � the numbers to the background in order to achieve the most legible and harmonious effect. When the numbers are placed � on glass, numbers with bright color or gold are seen best whatever the lighting conditions are inside and outside. The location of all signs oriented to vehicular traffic (bus- � iness signs, addresses, and public information signs) should be coordinated to make them easier to find and to increase their legibility. Business signs should be located at the highest � level: the level of the sign bands of building facades. Addresses should be located at a middle level. Public information signs, such as those for parking and loading zones, should be located � at a lower level. Public signs should be located on the fewest possible number of poles. As much as possible, they should be limited to light � poles, with no more than two signs per pole. Unnecessary public sinage should be removed. All street light poles, sign poles, traffic signals, etc. should be painted S.O.M. 4�2 (dark � bronze color) as repainting is necessary. � � � � � � � � 20 � � IZ � O� V� � W N � � C � �a� ��a `� u a�D w � a��a v � fD� a �v � � w w c° °' ° r'�''rn � aMa H�'� �'a � �:o � a � ��* a �'< �' 3 -� -� � ° c �� w � " wo° ? c� ° .�, < rnaw oo � O v � •�H n 3 � x'� a 3 � � ` a � Z w � fD 3 �� r. � aa�� L> > a�oaa � �. x'�'� 'o 00 � � �+ �oc � ., �« �.v �e �o 'v � � � o „�;; x y�' �? o �'�'w �. � �' r °° O � � � � � o � �a`o' w Z � � w ' ' a � � � �o � oo �p � nr n n n o n z � �w� � �rn W � � `�'O �n• � � � n � Q.. � � S � Z � •- � � oc � o � o � c c � n a � � � N � � z a nro� g nb� � n �va o � � z �v ° 3 > > 0 3 > > o `-° > j o ?�' rn0 3 a�o. 3 a� a �• a �a r. � C7 �-+ � w`< � �; w'< � °' �� rnrn � a�°'� n w�an � � a` � o h � � � 0 �t-� �a �--L� � a a� �a a 'v (� y � x.N � � � N � 'n n N � p� � �� rtH � �+ � � o „�. � v z � O �„��G � �OG � M�'0 � Z � O O O Z n � � � �'�' � _� � � `� v � vz -� � � � a� o� � �• � �� ' � � w � �, �p � s� `� w .�« ?•-�w o -1.. 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O -°� � V v Z � � , Z U �U C N � � � ...� Y ��ro U F � a � vLL Up ° b >,� u�u1 � v� o � �� L C v � N 0 fO L a Z Z Z � Ua° Z � c" 0 .y = O O y � w E •� •� � a •� •� E� ;� �,o � L1 U � v� +� �p `° c $ .�V � 0 ON m o ro ¢ � �Y � 3� vQ n. c7 a aU Z � � Z +� Y U v c� v � E °�° .� � v � � � ; Q � '+� r, �� o •� w � �.� � ..a ooL°° � o :° = v ° c u° Z va " °c"' � �v °c'.� °� ,� roo � oH '� ro �� c ro O F- v � °c° v °c°v v � � v '�hn. � v .. .� � � v �n �v � w rd� ` � roc � °o '_°, croc v° > o�o p v-�i° a w n.co U v a u.t�..:� ¢ ¢in � > fL � o0 0� o -� � � � 22 CREDITS � � GRAND AVENUE WEST TASK FORCE � Planning Commission Sister Alberta Huber, Chair � District 14 Community Council � Steven DeHart Mary Alice Krebs � Tom Levitan Grand Avenue Business Association Dan Fourre, Voigt and Fourre Architects � Jeannine Solin, Grand Avenue Ace Hardware Mike Spahn, Grandview Phamacy � Macalester College David Lanegran � Saint 'Thomas College Philip DesMarais � GRAND AVENUE EAST TASK FORCE � Summit Hill Association Judy Bigelow, Chair � Robert Casselman Nancy Dow ney Peggy Lindoo � William Madden Grand Avenue Business Association � Helen Bisbe, Muska Lighting Don Bober, Bober Drug Tom Gormley, First Bank Grand � Jim Miller, Grandendale Pharmacy Jim Solin, Grand Avenue Ace Hardware DEPARTMENT OF PLANNING AND ECONOMIC DEVELOPMENT � James Bellus, AICP, Director � Peggy Reichert, Deputy Director for Planning Lawrence Soderholm, AICP, Principal Planner Allan Torstenson, AICP, Planner-in-Charge Mark Basten, Design � 23 '�,