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278547 '�y�� CITY OF ST.PAUL CO FI ' PRELIMINARY ORDER � By File No. S-10883, S-10884, S-10885, S-10887, S-10888, File No. S-��889-�5-108�1.6T-S-10A�1 S-10922, S-10923, S-10924, S-10891, S-10892, S-10893, S-10894, S-10900, S-10902, ` S-10904, S-10905, S-10906 In the Matter of reconstruction of sidewalks and work incidental thereto: 5-10883 North side E. IOWA AVENUE from Kennard Street to East 150 feet. 5-10884 South side FIELD AVENUE £rom 200 feet West of S. Prior Avenue to 410 feet of S. Prior Avenue at 1970, 1976, 1982 and 1988 Field Ave. S-10885 Soutti side E. FIFTH STREET at 1952, 1956 and 19G2 E. Fifth Street Lots 16, 17, and 18, of Block 1, Wild Rose Addition 5-10887 West side CRAIG PLACE at 1643 Craig Place. S-10888 NortY� side E. HAWTHORPdE AVENUE from Mendota Street to West 200 feet. S-10889 North side E. IOWA AVENUE from Hazelwood Avenue to East 150 feet. S-10896 West side STRYKER AVEPNE from W. Isabel Street to North 150 feet at 67 W. Isabel and 413 Stryker Avenue. 5-10921 South side E, ORANGE AVENUE from Mendota Street ta *'^^r �;n �'=.�T�Q,,* �� . e��. ,A�Gc��. �r,�«f: � 5-10922 I�Jest side SOUTH SNELLING AVENUE from Niles Avenue to South S1 feet at 543 Snelling Ave. S-10923 South side STANFOP.D AVF.NUE from Davern Street to West 90 feet at 1710, 1706 and 1700 Stanford Street. S-10924 West side DAVERN STREET from Stanford Avenue to North 145 feet abutting 1701 Stanford. S-10891 Both sides SHERWOOD AVENUE fmm Germain Street at 1540 and 1581 Sherwood Avenue only. S-10892 West side HAZEL STREET from Clear Avenue to Cottage Avenue and North side CLEAR AVENUE from Hazel Street to West 606 feet. S-10893 East side KENNARD STREET from abutting 1662 Fremont Avenue S-10894 South side E. HOYT AVENUE from Greenbrier Street to Parkway Drive at 686, 682, 678 E. Hoyt and one panel at 674 E. Hoyt only. 5-10900 South side YORKSHIRE AVENUE at 1776 and 1764 Yorkshire Avenue S-10902 West side KENNETH STREET from Stanford Avenue to South 125. feet at 2000 Stanford Avenue. S-10904 East side WHITE BEAR AVENUE from Wilson Avenue to North 69 feet at 424 White Bear Avenue. S-10905 North side HOYT AVENUE from East of Germain Street at 1607 E. Hoyt Ave. S-10906 South side JAMES AVENUE from Lexington Avenue to East 285 feet. ��b � �� S- � � � � � - n s � �- l �� . WNITE - CITY CLERK �854`7�y PINK - FINANCE CANARY - DEPARTMENT G I TY OF SA I NT �� y L COUflC1I BLUE - MAYOR File N . solution Presented By Referred To Committee: Date Out of Committee By Date WHEREAS, a municipality may, pursuant to Minnesota Statutes, Section 462.353, carry on comprehensive municipal planning activities for guiding the future development and improvement of the municipality; and TdHEREAS, the Council of the City of Saint Paul may, pursuant to Minnesota Statutes, Section 462.355, Subdivision 3, adopt or amend a comprehensive plan or portion thereof after a recommendation by the Planning Commission; and WHEREAS, the Planning Commission has recommended adoption of a plan for District 17, entitled the "Downtown Development Plan" as a part of the comprehensive plan; and WHEREAS, the followir�g action by the Council of the City of Saint Paul is not an implicit adoption of a comprehensive plan of 1963 or other portions thereof recommended by the Planning Commission; now, therefore, be it RESOLVED, That the Council of the City of Saint Paul does hereby adopt the plan for District 17 entitled the "Downtown Development Plan" (a copy of which is attached hereto and marked Exhibit �„), subject to such review by the Metropolitan Council as ma.y be required by law. COUIVCILMEN Requestgd by Department of: Yeas Nays Hunt Levine [n Favor Maddox � McMahon B snoweiter - __ Against Y -- Tedesco Wiison � ��p� O Adopted by Council: Date APR Form Approve b City Attorne Certified P s_e y Council S retar BY sy ; A d by Ylavor. D e �R � 2 �98 Approve by�l�tayor for Submission to Council — � By _ _ By _ PUBLISHED APR 17 i982 � DOWNTOWN DEVELOPMEPJT PLAN DISTRICT 17 � � JULY 1981 REVISED OCTOBER 1981 � � � � i � � � � � � � • i i PLANNING DIVISION � DEPARTMENT OF PLANNING AND ECONOMIC DEVELOPMENT CITY HALL ANNEX 25 WEST FOURTH STREET � ST. PAUL, MINNESOTA 55102 � � � PREFACE � � The following revised draft of the Downtown Development Plan is a product of the Planning Committee of the Down- , town Community Development Council with staff assistance from the St. Paul Department of Planning and Economic Development. This new draft is a response to changing � conditions and the need to address issues, such as housing development and energy policy, which have become major concerns for downtown. � The Downtown Development Plan was originally prepared in 1978, as an overall framework for planning and decision- making. It described a circulation system and indicated � general land use plans for each of six study areas: Seventh Place/Financial District Study Area I Lowertown Stuc�y Area Civic Center Study Area Arts and Science Center Study Area � Cathedral Hill/West Seventh Street Study Area State Capitol Study Area - The Plan was widely reviewed and has been used to guide � , decisions during the past tN�o years. However, it has not yet been adopted into the Comprehensive Plan. When the Downtown Cort�nunity Development Council finishes its � review and revising of the Plan, it will hold public discussions and then submit the Plan to the City - Planning Commission. Once adopted, the Downtown � Development Plan will serve as the District 17 Plan. � � � � 1 � � � � � TABLE OF CONTENTS � i - 1 .0 INTRODUCTI 1 � 3 2.0 NER L �EVEL ENT �L N 2. DEVE PMENT ICIES 3 � 2.2 R SED L ND SE 8 .3 P SE DE EL NT STR TE 9 S I CU T N I E ENTS 9 2.4.1 VEHICULAR CIRCULATIO�� 10 � 2.4.2 PARKING 10 • 2.4.3 PUBLIC TRANSIT 12 � 2.4.4 PEDESTRIAN CIRCULATION 14 2.4.5 AIR TRANSPORTATION 16 2.4.6 IMPLEMENTATION OF CIRCULATION IMPROVEMENTS 17 2.5 HOUSING DEVEL PMENT 20 � 2.6 URBAN D 'STGN 23 2.7 ENERGY CONSERVATION 24 2.8' ECONOMIC DE EL MEN 25 r 3.0 STUDY AREA 27 � DEVELOPMENT CONCEPTS 3.1 SEVENTH PLACE/FIN NCIAL DISTRICT STUD 27 3.1 .1 STUDY AREA PROFILE 27 3.1 .2 DEVELOPMENT OBJECTIVES 29 � 3.2 LOWERTOWN STUDY AREA 31 3.2.1 STUDY AREA PROFILE 31 3.2.2 DEVELOPMENT OBJECTIVES 33 � 3.3 CIVIC CENTER STUDY REA 37 3.3.1 STUDY AREA PROFILE 37 3.3.2 DEVELOPMENT OBJECTIVES 39 3.4 ARTS ND SCIENCE CENTER STUD RE 42 � 3.4.1 STUDY AREA PROFILE 42 3.4.2 DEVELOPMENT OBJECTIVES 44 3.5 C TH D HILL W S E E H S REET RE 48 � 3.5.1 STUDY AREA PROFILE 48 3.5.2 DEVELOPMENT OBJECTIVES 50 3.6 ST TE C IT S D RE 53 3.6.1 STUDY AREA PROFILE 53 j3.6.2 DEVELOPMENT OBJECTIVES 55 � 4.0 DEVEL PhtENT 58 4.1 FINANCIAL RES RCES 58 i � i � � 5.0 A� ENDIX - � 5 1 EXISTIN LIC EW RK �t 5.2 MAJOR REFERENCES - 65 � . 6.0 CREDITS 66 � � � � � � � � � � 1 � j � . i � LIST OF MAPS AND ILLUSTRATIONS � � FIGURE PAGE TITLE � � 2 Downtown Development Plan Study Areas 2 4 Intensified Center � 3 7 Proposed Land Use 4 11 Vehicular Circulation 5 13 Public Transit � 6 15 Pedestrian Circulation 7 28 Seventh Place/Financial District Study Area, Existing Forces � 8 30 Seventh Place/Financial District Study Area, Development Concept g 32 Lowertown Study Area, Existing Forces � 10 35 Lowertown Study Area, Development Concept 11 3g Civic Center Study Area, Existing Forces � 12 40 Civic Center Study Area, Development Concept 13 43 Arts and Science Center Study Area, Existing Forces 14 45 Arts and Science Center Study Area, Development Concept - 15 49 Cathedral _F�ill Study Area/West Seventh Street Study � Area, Existing Forces 16 51 Cathedral Hill Study Area/West Seventh Street Study � Area, Development Concept 17 54 State Capitol Study Area, Existing Forces 18 56 State Capitol Area, Development Concept 19 59 Private and Public Financial Resources � 20 64 CBD Concept Plan � � � � . � � � � 1.0 INTRODUCTION � � Downtown St. Paul : A people-oriented center thriving on � many and varied uses, from housing and entertainment to comnercial and ret�il activities. This is the vision guiding St. Paul today. This Plan is to direct public � and private development efforts during the 1980s. St. Paul is taking steps to revitalize its downtown area into a truly diverse center. The refurbished Landmark � Center has opened its doors to the residents of St. Paul and people from the entire metropolitan region. The Mears Park Apartments provide market rate housing in the � city's core. The Lowry Square Apartmerr�s , the Seventh Place Residences, the Gallery Towers Condominiums are adding a variety of downtown living experiences to the � core area. The 3M McKnight Omnitheatre provides a focus to the new Science Museum complex. A new medical office building completes rededelopment as part of the Science _ Museum complex. �eventh Street between St. Peter and � Jackson has been closed to traffic and officially desig- nated as a mall . Town Square, which opened in the fall of 1980, provides pedestrian spaces , a new park, office � and hotel space, retail shops and restaurants which highlight this as the heart of downtown. This Downtown Development Plan is a statement af policy � for guiding decision-making. The City of St. Paul 's operating departments and agencies will use the recorrmen- dations in taking action to aid downtown development. � It will also be used by the Metropolitan Council and state and federal agencies in making funding decisions. Specific program and project proposals for the downtown � will be evaluated for conformance with this plan; it will also help individual citizens, financial institu- tions , and investors who are corranitted to the future development of downtown St. Paul . � For detailed analysis , the downtown area is subdivided � into six study areas. These are shoaln in Figure 1 . � . � � � � 1 FIGURE 1 DOWNTOWN STUDY AREAS � � Flgure 1 Downfown Study Areas � \., � . �_/� �c,, � �� ,�.'�' \ar�s/- �`•�cQ � .` .�� "�c>'�� \� ` �� - �° \�� \ �.�i� \' � �/ � , � � � � �7�ATE C��ITOL �\�\J� �` � � �\\ �; � i AREA � � � � % �, i'� 0 � �� O�� ;,,� r`O`�� o - ,l°°�� '�,, � . . .� �� l � o � , �' o �� i. \� �� , �\ �l/�� O �' �/ / / � ✓� � \ � ��\ o �Q–��.0 11 on_iv�r�it�, /� � �,�� ... � �� ° � �,�> � � `a � �o �� '�� °�0 �� ,� �`�� G�� - � -- - � �i / ��oa , � �.�_ �� r � - � � �., �.,.<��'�001�V ' ;�� _ ��-! il I �i ,��'�� — _ — — �' a�� _ _ - _ � ',. v�,_,�� - , ��___�� _ - � � �0, _ ___ _ _ �-�� - �-�� :� �� , ' c'=�H��R �H� � ,, L�� -:� � �, \. , � / - - _ � - R , , � Q� >, w s�v � T� �� 0 [} ,. san �,�- �, i � , �� _ �a�- � � o `G� o i �d I�J o�4�0 _ ��'� �Q �; � " ��i�\�,�� '�� 4_ �� th�I � 1 I��', �r� 1) � I � � � �,� ;� e �'��' ��` �� __ � - �,�� _��_ �`�� ` A '� � ' �i� �'° =��,��_ �� ,� ��` j° ��8 � �`�- E��– ��.'�, � � � ° ��,°-- — � -�-� s 1 _�� _O O =� °`- '"� �_ �� d i ' � � _� �. m o °� � N _ � /��D ; � , o �_J E °W —� �% , �. �`� ;�� _ ,'�� ; ; �-� ��,��- . _ _�� ' � �°J �,��= ° '� ---_� � �I��''°_ ` —° �� I � � — LL � O _��l—''! 'CO � SheP2Cd •�». -��;� ' � � _ r� I y Warner +—- J`� �� 2 � � 2.Q GENERAL DEVELOPMENT PLA� � � i This chapter outlines an overall framework for guiding � development in the downtown area. The framework identi- fies areawide development policies, general land uses, development approaches and related transportation/circu- � lation improvements. This areawid� framework is intended to set the stage for specific development proposals and ideas which are illustrated in the study area develop- ment concepts of the Downtown Development Plan. � 2. DE EL EN L I 2. . B C RI E E � CREATE AND REINFORCE A MULTI-FUtdCTIONAL ROLE FOR DOWN- TOWN ST. PAUL. � This multi-functio�+�7 role is intended to create a place where people can work, shop, live and pla�y. Speci- "" fically, the overall recommendations necessary for � achieving this policy should be: 1 .Strengthen the downtown area's base as a regional employment center. � 2.Redevelop the downtown into a prosperous regional re�tail center. 3:Develop medium and hiqh density housing for a full � range of incomes within the downtown area, including opportunities for low income households. 4.Expand related services within the downtown to create an environment for a 24 hour city, including security � measures, especially police protection. 5.Expand the variety and numb�r of recreational , leisure, and entertainment activities available within the � downtown area. 2.1 .2 UBLIC DEVEL MENT E RTS D S SH ULD � ENCQURAGE MAJOR DOkNTOWN ACTIVITIES TO REMAIN CENTRALIZED - RATHER TNAN TO SPREAD OUT OR Ta LOCATE AWAY FROM THE DOWNTOWN CORE. � A develop�d intensified center is the intent of this policy. Major downtown aetivities and one-of-a-kind � functions should be encouraged to locate on underutilized or vacant parcels within the planned "Downtown Intensi- fied Center". The objective is to create a compact core of mixed high Censity land uses. This overall develop- � ment policy requires reinforcing the Downtown Intensi- fied Center by land uses at its boundaries which result in a containment of major downtown activities and � functions (see Figure 2). � 3 FIGURE 2 DOWNTOWN INTENSIFIED CENTER � � � Flyuro 2 Downfown IntenslNsd Center ••• � � �. . -�� 1 �f� - � � � � .��,, ! `'� �� '�� ,�� , r J �,� �' � '�`, '�:.• � �'� ;�, ./' , � '�� ' ' �,, � �`\�`�� =-�. �. r � � ��`f�` '�� .,�� `�. ��.,,�� \�, � �`�� .�%', �'�°�'y� , � � � r � � � ' � � � .� /� .� ,� " p �f f � •� O T _ ��_�� ; �� , � �. '" � .�. � � �� , �} !�3 ° � �°`' �� .� �� ,•/ �.<�.�� c� � �� ./l r �;� _<.�,-` �� ; \� .� � �', � `-��, � �/ ' �.: �'� ,�✓�� -� : ��;�� , :/ �� ^ � � —�-�� :__�, �� _ � _ � �a ---�__ --- 1� � ��o �� t �.;� � ��; ooC��i o ��o �, �� :�; � � �� o __ � p .. �4 �� 0� �� . �� '� �� v � � � � '� - . �� _�� a �l� �%: � ��.. � f\�'�� . �'^`�"^ � ��Js � p � � � �`,,_,� � � a _ � ��,-�-� � � T�''`��'� ' '�"�� ° �� i�� - � � � ° -- � -� °� w�: g 0� o �°'�� % �C� �, �� , �� °o�� .��,...-,---�------- � �,' M.:�: � � � � � 4 � � � � � The land uses which serve as boundaries for downtown St. Paul 's intensified center are major activity generators of a lower density character. These include the State Capitol Complex and Ramsey Hospital area on � the north, light industry and manufacturing on the east and southwest, the St. Joseph's and United Hospital complexes on the west as well as the proposed Lower � Cathedral Hill residential community. In order to achieve a centralization of activities the � following recommendations should be implemented. 1.One of a kind functions should be encouraged to locate on underutilized or vacant parcels within the central ` core. 2.Reinforce downtown by l.ocating land uses at its boundaries which result in a containment of the � central core activities and functions. 3.Public and private development actions should maintain the existing character of the lower intensity uses at � the edges of downtown. 4.Public and private development actions should provide full support to the mixed land use development of major downtown functions within the planned intensi- � fied center. � 2. 3 116l.IC AND RI E DE EL P EN C S SH D H P CREATE A PEDESTRIAN ORIENTED DOWNTOWN INTENSIFIED CENTER. Pedestrians are the workers, shoppers, residents and � � visitors that are the focus of downtown economic and social activities. A pedestrian oriented development policy for downtown St. Paul recognizes this fact. � Several overall recomm�endations support this policy: 1 .Recognize and develop rrajor pedestrian paths and � centers of pedestrian activity, clarify entry and exit points, and points of reference for the traveller. 2.Provide public spaces and plazas within the city, designed for all-season use. � 3.Provide climate-controlled accessibility within the intensified center. 4.Encourage private developers to provide an assortment � of people-oriented activities at street and skyway levels. 5:Create a distinctive and attractive downtown visual � image by adhering to urban design considerations in public and private development, historic preservation efforts, and public right-of-way development. 6.Create an integrated pedestrian mall system with � Seventh P1 ace t�1a11 as i ts focus. 5 � � 2.1 .4 THE D04JNT JN DE E EN S E S NCE � MAJOR NE41 DEVELOPMENT EFFORTS WITH MEASURES TO CONSERVE AND BUILD UPON WHAT IS SOUND. A variety of development needs exist within the downtown � area. Deteriorated and underutilized areas require new development efforts. Other areas contain unique struc- � tures requiring extensive rehabilitation and/or restora- tion. The remaining ar�as require ongoing maintenance, to preclude deterioration. If the downtown area is to � achieve its goals, then a total development approach is required which carefully rratches new development efforts to maintaining and stabilizing structures in sound condi- tion. � 2.1 .5 UBLIC ND RI TE DE EL MENT E F RTS SFI ULD AKE � ADVANTAGE OF THE UNIQUE FEATURES OF THE DOIrlNTOWN, IIVCLUD- ING ITS F:EP,ITAGE, TOPOGRAPHY, AND CULTURF,L OPPORTUNITIES. 1 .St. Paul will encourage preservation of its heritage � and unique characteristics and will encourage new development to help St. Paul 's economy. 2.Downtown St. Paul 's natural features make it interest- � ing. The bluffs provide a varied terrain and a view of the city below. The Mississippi River provides the opportunity for boat moorings and park space along the � river. Emphasis should be placea on maintaining the river as a recreatienal resource within the downtown area. Industrial uses should be allowed dawnstream. 3.St. Paul 's man-rr:ade structures offer a varied array of � historic buildings and nev� develepment. With the refurbishing of Lancfrnark Center, the Rice Park area provides a g;.thering place for St. Paul residents. � Other major historic buildinos include the Hamm Build- ing, City Hall , the McColl Building, the Pioneer- Endi"cott �uilding, the State Capitol Building, and the � Union Depot. 4.Once development and expansion occurs in the proposed entertainment section, St. Paul will be able to offer theaters, eating establishments, playhouses, and night � spots along with its alreae�y well known Science Museum anc! Omnitheatre and other existing theatres, bars and restaurants. � � � 6 � � FIGURE 3 PROPOSED LAND USE � � Flpuro 9 Proposed Lsnd Uss � �� <^ � � �' � � �,��\, A �� >,� / �� `� ` �� J � � � � `�\�i �i ,,� ,i�� ,� :. � � \�'� �� , � , ��;� ��. . ��v%� ��, �� ; �� o �„� � � � � ��,� �� , � ,�,, �p., 1 � � �/ ,,l �/C � O � �/O�\. ... -� �O �� ;.o � �� , , � �`�� \�J� o �� , �� oo \ � :�� ,� / �, �� _ ��,� � � �� I r � _�_, ,a _ __ � ��r. � �D� :- �� o� �� - � o�� , � .... � �.. � �� .1�� .�� ID^� . ..: v,�.� �� '.. �. .... �� " 1 � � � _:�, � �� p � ,,,, `�---�,, r.._—.�"" � �� ,�� __�. �' 0 � � ,� �� '." — Q � ��,��— �� -_� � Q � -, � a I , o ' ��„ � ��o �� o "'�- � � u+.mw. -o� i f ! � � " Residential ' Institutional/Cultural Retail/Service � Open Space � Office/Service Mixed Use � - Government Light Industrial � � 7 �. � � . R SED ND E Downtown St. Pau s ou e deve oped as a mu ti- j functional , intensified center; that is, a place of highly concentrated, varied activities. It should be - characterized by high-density, mixed use development. Figure 3 illustrates the mixed use character (including � comnercial , office, service, government, retail , hotel , cultural , entertainment and residential ) intended for the center of downtown. � The center of this mixed use intensified area is rouqhly bounded by Main Street, Eleventh Street, Broadway Street � and Kellogg Boulevard. This intensified area is composed of four subareas: - Seventh Place/Financial Core, downtown's retail , office, � and banking center. ' - Lowertown, where major renovation and new development are expected, including a residential community, or � urban village. - CiVic Center, which is the focus of downtown's conven- tion facilities. � - Arts and Science Center, with cultural and entertain- ment activities as well as many housing units. The downtown areas outside of the intensified center i will have lower density activities and facilities which, � because of either specialized land use, incompatibility, and/or historical placement are located on the frinc;e of � downtown. These areas will be activity generators that complement the Downtown Intensified Center. These areas include: - The State Capitol complex and surrounding neighborhood � commercial and residential uses. - The St. Paul Ramsey, St. Joseph's, Un�ted Hospitals, � and Qethesda medical complexes. -..The light industrial and warehousing land uses east and southwest of the Downtown Intensified Center. � - The West Seventh Street Commercial District. - The proposed residential land uses in the Lower Cathedral Hill/West Seventh Street area. � � � 8 � � � � �� ve opmen programm ng wi in e own own area wi tSTRATEGY fall into three aeneral categories: � 2.3.1 NEW DEVELO MEN E RTS THAT INCRE S THE STRENGTH AND VARIETY OF DOWNTOWN ACTIVITIES. � 2.3.2 REHABILITATION AND RESTORATION E FORTS IN THOSE USABLE BUILDINGS WHICH HAVE SIGNIFICANT DETERIORATION AND/OR ARE HISTORICALLY IMPORTANT. � 2.3.3 AGGRESSIVE MAINTENANCE/STABILIZATION EFFORTS FOR I SOUND BUILDI�IGS AND THOSE SHOWING EARLY SIGNS OF DETERIORATION. � Recoclnizing a variety of development needs throughout the downtown area, this strategy calls for major development and improvement efforts to be balanced with measures to conserve and build upon what is sound. � Prime areas for new development and restoration in the intensified center include Lowertown, Seventh Place, the � Rice Park area, and the Science Center area. Outside the intensified center, new development will most likely occur in the Lower Cathedral Hill area, the United � Hospitals area, and the spine between the State Capitol and downtown. � 2.4 TRANSPORTATION/ Transportation and circulation are important factors that CIRCULATION IMPROV�MENTS affect the development objectives of downtown St. Paul . Travel to, from and within the downtown should be made � easy and convenient, pedestrian-vehicular conflicts should be reduced, and air quality should be maintained. Downtown St. Paul is one of two metropolitan centers � serving the Twin Cities region. It is a major transporta- tion hub and market place. In order to serve this role successfully, the city must maximize its accessibility � for the novement of people and goods. It is within this context that specific downtown transportation recommenda- tions are made. � � . � 9 � � 2. . HICUL R CI CU I N � Downtown development objectives require the following major vehicular circulation improvements: - Diverting through traffic, especially trucks , around � the Downtown Intensified Center. - Providing long term e�ployee parking on the edges of � the Downtown Intensified Center. - Providinq convenient, free or low cost, short term parkinq within the intensified center for shoppers , � patrons and visitors. - Providing traffic control measures which improve access. Diversion, of through traffic away from the Downtown Inten- � sified Center is dependent upon completion of the down- town ring route system. Two projects are of immedi�te importance to the ring route system. The first project � is the proposed East Central Business District Bypass on the east side of the downtown. This project involves the - construction of a new four-lane thorou�hfare east of Lafayette. The second project is the completion of a � roadway in the Pleasant Avenue corridor. Completion of this road segment in the Interstate 35E right-of-way is necessary to complete the western leg of the downtown � ring route system. This western segment is intended to utilize Chestnut Street and Marion Street, via the proposed 5th-6th Street connector, as the desi�nated ring route thoroughfare. Figure 4 illustrates the proposed � ' downtown thoroughfare plan. 2.4.2 PARKING � Parkin� needs generated by increasin� numbers of downtown employees will also have to be met within the downtown area. Increased car/van pooling and mass transit use. � will accor�nodate sor►ie of this need but additional parking facilities will have to be provided. The long term � parking needs of downtown employees should be met through development of parking facilities on the ed�es of down- town, in order to reduce costs , to reduce peak hour con�estion, and to free up existing parking facilities � within the Downtown Intensified Center for short term shopper, patron and visitor usaae. Additional steps are required to provide effective short � term shopper, visitor and patron parking. If downtown St. Paul is to remain competitive, then it will have to provide short term parking facilities which are free or � low cost, convenient to use, easily identified and close to trip destination. Short term parking should be provided primarily by public and private facilities � within the Downtown Intensified Center. 10 � � FIGURE 4 VEHICULAR CIRCULATION � � Flgure 4 Vehlcular Clrculatlon � \ _ �� ,�;. � � � �� '` �� h• �� '�' � -- � r�� /� � � �� _ . � �� S f'� �� a� � '�'y `�� 4,,� ,� ,.#�,9 ��r`v,��\� q� f/',� ` \ (( ��=� ,�� ., ,� o -;� �� ,� _ o� � ,� �� .i� �� '� a — � , � � o o_ . ;,� 1 � ,� � �-��—_�� ' � � � �� ,�� -�� LJ'' ` �� _--- � � � j �� J�_� _ n � R . � �� j `,'�� \��,� �� rwe'II t 'r � 4, � i � T � � ��.. ��_9�0 � _ �� m _ � � r� - ^\ � ��r y �� / � O\ W �; -d y�p�'.' /�� 1� �"� h � � yt 1�,9,yT J\ / O ,, i�. C O C��_ — LI , \ U Bw �p.v,pK�.-��` '' �� ✓�-�`� �� Q, ; _ Pleasa�t� :� �� "": i v � � �,�: � �o � a-n-e:.t.�.,,�/ � qp a i,� � W � �'' ��; �� _ .�� ` L°J ol �' /� w ?tr ;� . ': �• a�� Se�r n '�:_' �� p� — `�� // t ,.._ , - � -- --� . � �_ � �� , / � ��,J�.�.� � �j'� �� , � �. ,' -�� - , , . h, .. : � � _ .? �o �_. .�.��:. _. ;�o _-- — � _� � --� � •l i m � , �� co: r'� � � _�.-' � , � ' ��: ,t6 � � ,,,{f t,�l++ _ 4� 8� ., ��t� � '� � - � �� 7 \° �L1 , N ` y, - I'C; _ — ;`�� o ,,.�t- '�` o � � �� ; ��g�— � 4`"'^_ � �� '� . y � C �- - ��\�-�� G�}�._ �� N \ � m' � � � ' � � e ar '� _a� - - � � a, � � _ � Sh P ° ello2g, � �o'' � _ � '�- :� � �< _ �»- � - � � � : Principle Arterial Minor Arterial A � Minor Arterial B Collector � =F�,^A, Future Construction Ring Route � � 11 � � � 2.4.3 PUBLIC TRANSIT Public transit is an important method of ineeting the � increased travel needs generated by new downtown acti- vities. Downtown St. Paul has the advantage of being one of two transit hubs within the metropolitan area, so it � receives a high level of service. Dramatic chanc�es in downtown bus routes have occurred due to the closing of Seventh Street for the Seventh Place � Mall development. The newly desiQnated routes reflect current travel needs. However, with the lonq term shift of development patterns , additional changes should be � evaluated by the city and the P�1etropolitan Transit Commission. Fifth and Sixth Streets should be designated as the � primary east-west bus route corridor and P�iinnesota and Cedar Streets as the primary north-south bus route corridor. � Increased development within the downtown area will also require an increase in the number of public transit � vehicles. Currently, buses operate in mixed traffic, but adding buses will lead to traffic congestion on downtown streets unless actions to segregate bus traffic are taken. � A solution to this anticipated problem should be the develonment of exclusive bus lanes for primary routes within the Downtown Intensified Center. This proposal would affect Fifth, Sixth, Minnesota and Cedar Streets. � Buses on other streets in the downtown would continue to operate in mixed traffic. Ano�her important element for c�ood bus service is the ! provision of passenc�er waiting shelters. Efforts should - be made to incorporate shelters into existing and proposed developments to provide maximum convenience and � comfort for waitina passengers. The Super Shuttle buses operated by the City of St. Paul � transport passengers from fringe parking locations to the center of downtown. Their routes are shown in Figure 5. They now serve four frinae parking locations and carry � an average of 1 ,475 passengers per day. The buses oper- ate about five minutes apart during peak periods and on the hour during mid-day. This service should be continued and expanded as the demand increases. � � 12 � � FIGURE 5 PUBLIC TRANSIT � Flgure 5 Publlc T�anslt � � , -._.> � /1 � i� , ' .� , � , ,,' � �i � ';, _ �--�-� ,_ m � �; . z - z� , , �.._ ' ' � `' ,� � : � ♦ � � � �� T�NT�I � � � .� _ ,� ♦ , � � - ��-� �(�Fi,�nl� �' ? [ � .. -� - � =: , .�-- -�€=, � � - ' . � �� ..� � ' �'� ' = � _ . � -, � � , ,_ _ � ,. �- ._ , ; . ; �� : �_ -: ,-, . . , _. — , _ , _ � ; [ _`_ � �a_ u�ix�r� � ` , � � � __- - � �� ; �� . _ -_ -- �� t� � �t �-�� '�FI�TH -�,�- �'t`�� : �', � , r,� �;�.�. � � � , x ! ; 'i � � J, ,, - `t ,,,, ,', � , _ { �� . E�'.€ _ �� _ � � � _ , .: �� --� . °" .-�,�� r� __� _ , _ _3 - _ � ...-- __ _ _y . _" `_ i --., _ � __ , � _`�`Y` r--- m---�-_ - F _� 1 _ �� Primary Bus Corridor � ----- Super Shuttle Service � � � � � 13 � � � � Durinq 1980 and 1981 , the Metropolitan Council has been , studyino the feasibility of light rail transit (LRT) for � the Twin Cities. Light rail vehicles would run on elec- tricity and could operate in mixed traffic, within the same ri�ht-of-way with motor vehicles. Preliminary � studies indicate that the University Avenue corridor between downtown Minneapolis and downtown St. Paul would have the highest ridership. Further study is needed to determine costs. Funding would be a challenQe because � massive expenditures would be required to build the system. If an LRT route were constructed on University Avenue, it � would loop through downtown. 2.4. D STRI C RCU TI N , � The development of downtown St. Paul is dependent upon an effective internal circulation system. This system involves two elements (Figure 6) : � - Climate-controlled skyway system; and � - Street level improvements. The existing and proposed skyway system is the first critical pedestrian circulation element in the Downtown � Intensified Center: The skyways provide safe, pleasant, climate-controlled access. Downtown St. Paul 's current skyway system has been almost totally developed with � public funds. Because of limitation� on future public funds, skyway bridges are now being developed on a shared cost basis between benefitinQ property owners and the city.� The second major pedestrian element is the development of sidewalk level pedestrian amenities. The intent is to provide an attractive outdoor environment for pedestrians, � This environment is an important factor in attractinQ residential , entertainment and leisure activities into the downtown area. � � � � 14 � � IGURE 6 PEDESTRIAN CIRCULATION F � � Flgure 6 PedestHan Clrculatlon � \ , - ,�`v,�, � ! t ��'' � * --.,�, �. �� ,�� %� � r" `�.' �q � � �'� � ��.,, tr�� °� � `�, � ' � � .� � � %��' ,L \ ° ' .�'� � �� '��`� :, �!�;�. �'' � ° ~ „� � � � , .� � � ��- � � � j � � � a �� J� �� ,� , ��n� � _ ,� � �+��a�11_.��.--- -� - ��;�� .�� , � �:� _. `.✓/��,� 94 fl _ - �-..� ;�„_._.,, : ' � _ ., . �� (� �� , --�� - ,�� „ �UJL�I� �M� r�° � '�"'�— ,'�� ;, � ��`s� � ■ Q��..� �o� � � � ` � �� ' � '��: � � 3 `, �� 3�r , � y� � � � ` . � D C/`�' �.�0 I■ r.�� _J�� L.��-.-y)� ��- � . �,��tv � �I��4 O ��,,�, � � �� t . s . � ��,. �. 1�. �� -�—��II�I—�..,.:; • �•"��L`.�..;+ p � . � �;� . �-�—� ��i� ) S �`�. � � ■�■ � � �i - \• ,� � __� � � �'� � � o ��i „�.;r' � � ��fi�' w` � �`j ��1: . . � . ■ ��Y,._.' �/f��\ - , � 1 � � C � 1 �r-' � � � �Ia I � ��.� �� ' Q �� . O° � ��. -1'.� I O � � + �o � ■ .. � ❑ � � � ��(�� — r— � -_� _,'>A.. `1 � � �� ■ u= j�! �� ...._ a �.�� - a ct�c:..,:�c „�y�.,+"r° '�""'� -�L----� ��' �`�'� � � :��V` --'"'� '�•• ;� M..��` --��,� � ..._ t � Existing Skyway or Tunnel ...... Planned Skyway or Tunnel � Planned At-Grade � Pedestrian Improvements 1 � � � 15 � � � The planned Seventh Place pedestrian mall is the spine of this street level improvement system. Extending from � St. Peter Street to Jackson Street, the Seventh Place Mall sho�ld be completely vehicle-free. The mall should be an exciting, people-oriented s�ace with a focus on � retail , entertainment and leisure activities. Radiating outward from the Seventh Place Mall should be streets with widened sidewalks which connect with the Lowertown, Science Center and Civic Center activity areas. � These sidewalk level extensions should have vehicular access, but should also include attractive landscaping, ornamental lightinc�, patterned pavinq and street furniture. � Holman Field, the airport just south of downtown, serves � an increasing number of corporate and private planes. From a metropolitan persnective, Holman Field is second only to St. Paul-Minneapolis International Airport, and /� is expected to help relieve the congestion on those run- � ways by handlin� more of the smaller planes. The Federal Aviation Administration and Minnesota Depart- � ment of Transportation have recommended safety standards for the airport which would limit land use and height of buildings within a 10,000 foot radius of the airport. � The Metropolitan Airports Comnission and affected munici- palities must now develop zoning regulations to enforce these standards. As proposed, the standards would � severely limit any new development in the Lowertown and eastern CBD areas and in the Dayton's Bluff, Railroad Island, and West Side neighborhoods. , There is an obvious public interest in eliminating obstructions from fli�ht paths and in keeping people away from areas where accidents are most likely to occur. � However, St. Paul 's economic well-being is affected by restrictions on development, especially so near downtown. The City Planning Comnission has been studying these � issues and has recommended modifying the boundaries of the safety zone in order to allow development at specific sites,in the eastern CBD, anc+ in the Dayton's Bluff, West � Side and Railroad Island neic�hborhoods. � � 16 � � � � 2.4.6 SUMMARY OF CIRCULATION IMPROVEMENTS � VEHICULAR CIRCULATION AND PARKING Downtown development requires the following vehicular circulation improvements: � 1 .Complete the downtown ring route, including the East Central Business District Bypass and the Pleasant � Avenue/I-35E corridor. Transfer the major truck route from Sibley Street to the East CBD Bypass. � 2.Complete the 8th-9th Street pair to carry east-west traffic into and out of the center of downtown. On the eastern end, route traffic around the proposed residen- tial area in Lowertown. � 3.Improve the comrnon section of I-94 and I-35E north of downtown by providing additional continuous lanes and 1 eliminatinn weavinq. 4.Improve Shepard Road to facilitate traffic movement around the downtown. Improvements should include � standardizina lane widths (12 feet instead of 10 or 11 ) , addinc� shoulders and turn lanes where feasible, and constructin� an interchanqe at Chestnut StreEt. � 5.Encoura�e use of car and van pools and transit in order to save energy and to reduce downtown traffic congestion � and pollution. 6.Minimize on-street parking in order to facilitate traffic flow and allow for pedestrian amenities. � 7.Provide commuter parkina facilities for downtown employees and others who must leave their cars all day. � 8.Parking spaces in the center of downtown should be used primarily for short-term parking. The parkina rate structure should be altered so that a sufficient number � of spaces will be available at a low hourly rate to shoppers and visitors. � 9.Adequate parkinq should be provided with each major development in the downtown core. � lO.Provide public information regarding parking and uniform signaqe of downtown parking. I � ,� � � PEDESTRIAN CIRCULATION � A.STREET LEVEL 1 .A system of pedestrianways should be developed, � including: - The vehicle-free pedestrian mall on Seventh Place between St. Peter and Jackson. � - A pedestrian walkway connecting downtown with the State Capitol . 2.Provide pedestrian amenities such as landscaping, � ornamental lightinq, and street furniture in areas where pedestrian travel is primarily at the street level , such as the Rice Park area. � 3.Create plazas where possible at entrances to the skyway system, to connect the street level with skyways. � 4.Encoura�e outdoor cafes and concessions during the warm months of the year. 5. Incorporate passenger waiting shelters within buildings � or set back from the sidewalk. B.SKYWAY LEVEL � 1 .Expand the skyway system to connect with the Science � Museum, Lowertown, and the Civic Center. 2.Continue to use existing guidelines, which provide for uniform design and signing in skyways and indicate how � skyway construction should be financed. 3.Future skyways should be constructed so that they could � be open from 7 AM and 10 PM Monday through Friday, and 7 AM to Midnight on Saturday and Sunday. 4.Add street level signage to indicate entrances to � skyways; add directional sians and maps within the skyway system. � � � � 18 � � � � PUBLIC TRANSIT � l .Encouraae use of public transit, especially for work trips , and increase the number of employers who are � providina their employees discounts on bus passes. 2.The primary transit routes thr�ugh downtown St. Paul should be on Cedar, �linnesota, Fifth and Sixth Streets. ` These streets should be equipped with exclusive transit lanes to provide additional capacity for transit vehicles. � 3.Continue and expand shuttle service to connect commuter parking facilities with downtown. � 4.Provide passenger waiting shelters, incorporated with existing and proposed development for maximum conven- ience and comfort. � AIRPORT � 1 .Use of Holman Field should be continues and improved. Safety must be ensured without severely restricting downtown development. � IMPLEMENTATION 1 .A downtown circulation study should be completed in � order to implement these recommendations. � � � � , � � . � ,9 � � 2.5 HOUSING DEVELOPMENT The quality of ousing is extremely important to the t overall character of the city and well-being of its residents. There must be a sufficient number of housing units of appropriate type and size to serve the needs of � a chanqing population. Downtown St. Paul is playing an increasingly important role in supplying housing to city residents. Although St. Paul 's population has decreased, � the number of households is increasing because households are smaller. There are more people living alone; people are marrying later; and couples of child-bearing age are having fewer children. � Because downtown is geared to an adult population, it is in a unique position to serve these changinq housing � needs. The 1980 Census indicated a total of 1 ,865 hous- ing units in the downtown. Judging from rents quoted by building managers or owners , at least half the units are available to low or moderate income people. This is a � population which the downtown area has traditionally served, because of low rent and because of easy access to transit, shoppinq, and medical facilities . Provisions � should be made to continue to serve this population, such as replacinc� .low income units which are lost in the course of redevelopment. � Housing units recently constructed downtown to serve middle income households, such as the � Mears Park Apartments, have filled quickly. There appears to be a stronc� demand for more such uni ts, ei ther for rent or for sale. The downtown is an ideal residential location for the single working person or professional : � couple wishina to save time and money in their travel to and from work. More variety of retail goods and enter- tainment will make downtown increasinQly desirable to � this population. It is essential that housing be appropriately located � within downtown St. Paul . Currently, there are some housing units located in every part of downtown. Atten- tion must be given to creating attractive residential comnunities, and this must include ready access to trans- � portation, employment, shopping, recreational facilities, and other amenities. It must also include good security and "defensible space" . Comnunities should each have an � identity such as a link with a park or other landmark. The most effective way to create such comnunities is to cluster housing units in the areas where these amenities already exist or where there are opportunities to create � them. � 20 � � � � The greatest potential for new housin� development, � because of available land, is on the west of downtown in the Cathedral Hill area and on the east in Lowertown. In addition, there are si�nificant opportunities for reuse ' � of vacant or underutilized buildinqs and land in the Arts and Science Center area. Proposals to develop housing should be evaluated based on their ability to meet the needs discussed here and on the appropriateness of their � � locations based on available amenities. Developers of newly-constructed downtown housinp have 1 viewed parkina as an essential part of the development. The ideal would be to provide parking under the building so that it consumes no additional land. But this may not � always be feasible. Another alternative would be to share parkinq facilities with other users such as retail or office buildings; and to construct ramps in such a way as to permit conversion to some other use in the future. � The city should encourage such arrannements which will serve parkina needs while keepinq construction of park- ing structures to a minimum. � The following recommendations should guide residential development in downtown St. Paul during the 1980s: � 1 .Downtown's housinq supply should be increased by 5,000 units by 1990. Most of these will be newly constructed, thoa�h development of units in renovated buildings is � also encouraged. 2.Housinq downtown should be clustered in areas with the � most potential in terms of available land and amenities. These include: - Lowertown: the area north of Seventh Street, the - riverfront and around Mears Park. ' - The Lower Cathedral Hill Area along the Pleasant Avenue corridor. - The Arts and Science Center area. � There also could be opportunities for housing develop- ment in the financial district, by converting existing structures or building above parking facilities. � � � , . 21 , � 3.The public and private sectors should strive for a safe, � pleasant residential environment downtown, with the amenities necessary to attract a high quality of development and thereby attract people to live downtown. � These include: - A sense of identity for each residential community. - Pedestrian connections to other sections of downtown, � at skyway and sidewalk level . - Well-policed streets and skyways to ensure a sense of security. � - Convenient parking. - Attractive open spaces, and opportunities for active recreation. - Basic qoods and services within walkin� distance in � each section of downtown: grocery store, drug store, dry cleaner, news-stand, restaurants, etc. 4.A housinq developrient plan should be prepared for down- � town. Development of new housing should be encouraged throuqhout the downtown, and proposals evaluated on the basis of availability of services and amenities . � S.Housina in the downtown should include moderately priced rental units , hor�e ownership opportunities in � condominiums and townhouses, and subsidized housinq, so that a mix of income groups and age groups will be main- tained. Opportunities should be identified and plans developed for replacement of low income housing lost � duriny construction of new developments. 6.Downtown housinq is expected to serve primarily sinqle � adults and couples without children, which means most new housinq will consist of one and two-bedroom units. Recreational opportunities and other amenities will � also be geared primarily toward an adult population. 1 I . l � 1 22 � � � � � . S N r an es�gn is t e arranc�ement o p ysica orms an , activities in the city to be both functional and visually pleasing. Urban design means looking at the city as a whole rather than at individual structures or spaces. St. Paul already has made substantial proQress in the area / � of urban design. Structures significant to St. Paul 's heritage have been preserved; new structures and public improvements in the downtown have been designed to create � an attractive and harmonious environment. One of the most important features of downtown St. Paul � is that it is at a human scale. In many areas , street lighting and landscaping at street level are located so that pedestrians can enjoy the full benefit of them. First floor spaces in many buildings are oriented to the • pedestrian either as display space for window shopping or inviting people in some other way. The skyway system is , of cour�e, designed exclusively for pedestrians. t St. Paul should strive to maintain and improve the down- town environment at a human scale. � There is a variety of tools available with which to imple- ment urban design recommendations. Advisory committees to review building design, guidelines to be followed voluntarily, special districts and ordinances are some � examples. The followinc� are recommendations for urban design in � downtown St. Paul : 1 .Create visually attractive entrances to the downtown ! along major transportation corridors , such as the Pleasant Avenue entrance on the west and the routes leadinq from Interstate 94 into downtown. � 2.Continue the skyway system (as described above) and concentrate street level pedestrian improvements in specific areas such as Seventh Place P1a11 . � 3.Provide open space in strategic locations for public enjoyment and for visual relief anc! contrast to struc- tures. a 4.Public improvements such as landscaping, lighting, and street furniture should be internally consistent within � each section of downtown and should enhance the character of that specific area. � 5.Preserve structures which are architecturally and historically siqnificant. � 23 � � 5.Recoqnizing that the downtown and the neiahborhoods in ■ St. Paul have common goals and must depend on one another, organizations representing the downtown should initiate contact with neighborhood organizations, in � order to work toward those common goals. 6.The city should encourage the private business community to assume a greater role in coordinating the � operational , management and promotional needs of the downtown. This should include r�arketing efforts, uniform operating hours and procedures , and a financial � mechanism to fund shared support services such as short- term parkinc� and promotional activities. 7.The downtown should maintain a healthy property tax s structure. Careful consideration should be given to special assessments. Prior voluntary approval with ; defined and controlled expenditures is a necessary requirement. • 1 . 1 ■ ■ � • ■ S ! 26 � s , 3.0 STUDY AREA DEVELOPMENT CONCEPTS � � The following chapters provide a detailed description of , development proposals for each of six study areas within the Downtown Development Plan boundary. � Each chapter will describe an existing profile for its study area, illustrate the existing development forces and opportunities, state the development objectives and illustrate the resultant development concept plan. While � each study area has its unique characteristics, the study areas are inteqral parts of the downtown as a whole and must be developed as such. The objectives and proposals � detailed in these chapters are made within the context of overall downtown development policies. � 3.1 SEVENTH PLACE/FINANCIAL . DISTRICT STUDY AR�A The Seventh Place/Financial District Study Area (Figure 7) is the major retail/office/service district and is � located in the heart of downtown St. Paul . Its southern boundary is the bluff overlookin�l the Mississippi River. The north, east and west boundaries of the area are down- , town streets: Eighth, Jackson, and St. Peter Streets. A significant change in elevation occurs in the Seventh � Place/Financial District Study Area with an approximate 20 foot drop from Wabasha down to Cedar Street. Other changes in elevation include a gentle slope framing a view to the north along Cedar Street from Seventh Street 1 to the Capitol Complex and a similar slope to the south between Fourth Street and Kellogg Boulevard to the Kellogg P4a11 overlookina the Mississippi River. , The major l�ndmarks in the Seventh Place/Financial Dis- trict Study Area include the City Hall/County Courthouse complex on Fourth Street and the historical Hamm Building ,� on St. Peter Street. Both of these buildings are . presently eligible for National Register Historic Property designation, as are a number of other buildings in the 1 proposed National Reqister Historic District surrounding Rice Park. � Because it is a major center of employment in the heart of the Downtown Intensified Center, a sianificant number of vehicles travel to and from this area daily. The Wabasha and Robert Street bridges serve as gateways to � the downtown from the south. Fifth, Sixth, Eighth, Ninth, St. Peter, Wabasha, Cedar and Minnesota Streets carry substantial amounts of vehicular traffic, and virtually 1 every public transit route into and out of the downtown area. This traffic becomes congested, particularly during peak hours and the noon hour, when pedestrian , traffic is at its qreatest. 27 FIGURE 7 SEVENTH PLACE/FINANCIAL DISTRICT � EXISTING FORCES , � Flgure 7 Seventh P/ace/Financlal Dlstrlct ExlsHng Forces � ;��- ��,� ': , � �� _ � ,, � °� � � � � � � � � � � � � � � _ � � _ � � � � : � � � : �� 1 ; �� :; ' I �� , : i� €� . � �-.�..-M-._...�..w� �; �� ,�-�.�� .. �.r<€�: � `� � �� a � �«-� �` � � ' a .: �� I ��.. ��'��.. ��, Q � ' ` RETA1 � , E , � � � _ � ; , - o..�, ; y a`t,."" ; � �-: � ,, "� ��f�A�. t� �� ' ; � � � ��--�� : � � �� ...� �� __ r �: � � I I O i µ� � ; � ; ; l� � �,�,,,.° �»�-...�^°' ;� � � , o� o �� .� ��,;,,,,�.....-�`? .+e.... ; � 0 ` �---��.. ; �� ; ��^ �� ; ' ; i !' i , l ,; < ,; � ;: >:: ;. ;: �� National Register Historic Property � . Property Eligible for National Register � r.�x. Potentiai National Register Historic District �� Gateway to Downtown t �\ � , 28 , � � � An example of hiqh density mixed use is found in this area: the Town Square complex. When projects under ' construction are co�pleted, the area will be nearly 100� developed. Remaining areas for redevelopment oppor- tunities are the vacant and underutilized parcels of land I on the blocks north of the Dayton's store and north of the Seventh Place Residences. ' 3. . DE PMEN BJ CTI ES 1 .To reinforce Seventh Place as downtown's retail and office center (Fiaure 8) . � Seventh Place represents the renaissance of downtown St. Paul 's retail function. The Seventh Place Mall will � stretch from Mears Park on the east to Rice Park on the west, and incorporate all of Seventh Street from St. Peter to Jackson Streets. Anchoring the east-west mall will be � an enclosed public shopping area located in the Town Square complex between Minnesota and Cedar Streets. This mall is to provide the focal point for downtown acti- vities and redevelopment of the downtown retail core. 1 The first stage of this retail development, the Town Square complex, consists of an enclosed public park space, a first class hotel , twin office towers and a major � department store, supplemented by additional retail shops . 2.To encourage private, new development along Seventh � Place which is of high intensity and complementary to the retail/pedestrian oriented character of the area. The Seventh Place/Financial District is almost fully ' developed. A remaining key development site in the Seventh Place/Financial District Area is located north of Dayton's store on the block bounded by Wabasha, Eighth, � Cedar and Seventh Streets. This block represents an ideal site for additional retail space, possibly inte- grated with an office and/or major hotel facility. The lower floors of this integrated development should be , retail , with a major office tower or first class hotel above. � A.second potential development site is the north half of the Seventh Place Residence block, bounded by St. Peter, Wabasha, Seventh Place and Eighth Streets. This site , should be a development link between the theater/cultural activities at the Science Center and the Seventh Place Mall . Cinemas , restaurants and nightclubs should be encouraged at sidewalk levels with additional commercial 1 or residential activities above. � 29 FIGURE 8 SEVENTH PLACE/FINANCIAL QISTRICT � DEVELOPMENT CONCEPT � � Figure 8 Seventh Place/Flnanclal D/strlct Development Concept ' - - -� � �. . \ I� � , � , r� _ � � � � ❑ � � ��0 `� l � l �� - ��A � � � �� _� � `� i� � /� � -- _� � — \ _ � ��' �—� 0 ° � �'�0-- � � l� _?_� _��, � ////_�' I—,�,�..—, '\ Y-H.ya II � � �I i� 1 � �I I � � L _��_—, I J � D _� �-- �- --J i II , L I I ��I� ( ` _—_- --- � � � a o �� ; � � 1��2 [� � ..�_ � �o - �� _� ��✓ �� 1 � �� ',� -Q' r -1 ,�m 1 �� ,, ,;� �� n,, � !'� � , �� _��' � � � - 1 `u � ,, � r� � -� ' -- - - - �a �j � � �' � �; ❑ �' �, ,., ___ -- � _ c �� . J L� _� J��l ° , n � � � �*�� \ � �� (CS � t �,�� p° CJ � � v -_ _ _� �� \ ' ' f Lwi�M� C��kGn�w ^ � ' I� �i r� - � \% �� i � o C� � �'I + ; �� /� � a .., s, l0�...'_ �..I�� I Wr�hn bT�� i � � , � ---; �- - —� 0 ;�-� �-_ — = -- _ , . � , �. �� o , ' �J � i ❑e;, , .., ' ,,...�� _ � �M � �__._ '_� � � �� '� � � _ � � � � �� .u/� j/ � � Q � � � �' � Q�� a o !, !a� ; � ,'' � i� ❑ I�� ! � O � � � � � �� - �� -��---��0 ��_ �$ � � - �p �--� �--. � r- - ; `Z_ r� � � � ,� � � 4�' , � , � � ; � � � � � 1�.....�J ° �� '�-- . � �, � � - o�� _ .� �- � .�.....�.-�, -- � o - -- 0 � � � � �` _� � � � - '� � ,�� - - - __ _ � � __- _ _� � �. -°-+a. _ � 6f-� `►�� M�im�e � � Rq W i I Residential Open Space � � Retail/Service Mixed Use � Office/Service Light Industrial � Government •�� Seventh P1 ace Mal l ( ; Institutional/Cultural ' � 30 � , � 1 1 3.To ensure that renovation and rehabilitation of exist- ing development complements Seventh Place. , Renovation and rehabilitation are inte�ral parts of the Sever�th Place development. The renovation of the Seventh ' Place Residence (residential units on the upper floors with retail , service-oriented uses on c�round level ) is a good example of appropriate reuse. ` 4.To develop selected skyways which coordinate the Seventh Place development with other functions of the Downtown Intensified Center. � 5.To. maintain existing levels of quality development in the financial/office core. � 3. �I RT •N STUDY RE 3. . STUD RE R 1 The Lowertown Study Area (Figure 9) is the primary ware- house/light manufacturing district in downtown. Lower- town is located in the southeast portion of downtown surrounding the recently redeveloped Mears Park. The � area is very clearly defined by Interstate 94 to the north and the Mississippi River to the south. Major Lowertown landmarks include the Farmer's Market to the ' north at Twelfth and Jackson and the Union Depot and Post Office to the south on Fourth Street and Kellogg Boule- � vard. , Lowertown is characterized by its historic six to eioht story warehouses which once formed a thriving and pros- nerous commercial neighborhood within the downtown and � served as a prominent warehousing, manufacturing and transportation center until the early 1950s. With the decline of these traditional activities, Lowertown was � nearly abandoned. Today, a resurgence of activity is underway in Lowertown, initiated bv the late Norman Mears in the 1960s and most � recently stimulated by a $10,000,000 comr,�itment from the McKni�ht Foundation to serve as seed money for proposed redevelopment efforts. The major concentration of Lower- � town warehouses is located in an 11-block area encompass- inc� Mears Park, the eastern terminus of the Seventh Place pedestrian mall . Many of the buildings in this area are eligible for National Register Historic property designa- � tion. A potential National Re�ister Historic District has also been proposed which includes all block faces fronting on the park. � , 31 FIGURE 9 LOWERTOWN , - EXISTING FORCES . � Flgure 9 Lowertown ExlsHng Forces � � ;� ' ; -w �� ' �-,....,,",� ;: ; ; �y'��,,,," ,�-......�,.�.X,, . �. : <: z-�.'"'":� , � , � �'.�,...��'.' ; �� i < �,.� � : � �-,- �� 1 � � � � � : �00 � . 't� l— __ � �— —� � � � ;. ; C�,.', � }�. , �� ' � . . �y ;� � �:.:t k :� .:f � . 4� ��kF ❑ ;s^ �� l � �. 1 � �I }`: � � � � � �� ..' l` 1MM�+M: � \� :z�� . � a- :C�:, #w�IwtY � � \.. �: .k�. \ � : . ': .�� :.': " : ": . �..,y:;v,:'. :y, � ;:{,a, � � ��`� ;�. .:: � '; : . ' ; � �i.'.K<:'v`C,: �,�� M�r�M�p^�� .?';k'ti? ��. .:.. ; �WL :: . � � . :. .:: .: �,/.:..::::::�.: .. �:� ..:.: ::�: : ;:.. �,� . ..' � ., v, � �. ' ��^.Q."` f�" �:�.� $, [ yy�� `��F`:,�^ �. � 2� R,--. .�`"" � .3.;�;�: �"�� : �� ,` iA � � � ��J��I�'R }� � f � �� I : , ' � � � ...�..�....._ . ....:.. . ,. �� -- - ,::' > ' ;: � < '�` 1 I• �"~�~�~ 4 � �::..�.�'�,�'',+��'',�'j,.�'�.:: �; � ' ��... � � � �� , � �� ' � ... � � ; .�..r � ; """�.'.,�� o ': :; :: .. :. " �r"r11pM MIYaO NAW � d � � .: ..'i ..��i : :'i� '' �' :.: '. .? :..:::`::.. ' ��. . �: . ': ;:' . . �i �: ... ��i � : National Register Historic Property � Property Eligible for National Register �� Potential National Register Historic District � �� Gateway to Downtown �1 � 32 � , � � Lowertown is primarily a mixed use area, with a significant amount of li�ht manufaeturin� activity. , However, as redevelo�ment occurs, significant changes are taking place. The Burlington Northern, P1cCo11 , Park Square, American Center and Nalpak Buildings provide , substantial office/service facilities. Retail stores are also found on the lower levels of the Park Square Build- ing and many of the buildinas frontin� on Seventh Street. , The 255-unit Mears Park Apartments project initiates the development of a downtown residential neighborhood in Lowertown. - � The Lowertown area experiences some of the worst traffic congestion problems in the St. Paul Downtown Intensified Center. Jackson and Sibley Streets carry a significant � portion of the downtown heavy truck traffic between the freeways and Shepard Road/Warner Road. This heavy traffic creates excessive noise pollution as well as potential public safety problems in an area of heavy daytime pedes- � trian traffic. Fifth/Sixth Streets and 8th/9th Streets also carry sic�nificant portions of east-west vehicular and public transit traffic daily into and out of the � Downtown Intensified Center, by way of Lowertown. The Cowertown area provides three major opportunities for , redevelopment: - Vacant and underused parcels of land exist in the North Quadrant alonc� Broadway and east of the Federal Build- , ing on Jackson Street (Block L of the Capital Centre Urban Renewal Project) . - Rehabilitation and/or conversion of some existinc� build- � in�s, which are either vacant or underused, into alternative uses (e.g. , housing and offices on the upper levels , retail/service and entertainment on the � lower levels) . - Air rights development of a significant scale over the proposed fringe p�rkinq and Post Office servicing facility. � � 1 .To promote redevel�pment of Lowertown, including resi- dential , corimercial and personal services , retail and entertainment activities {Fie�ure 10) . , 2.To maximize rehabilitation and conversion of existing buildin�s within the Lowertown core to maintain its unique image. � , ` 33 , � Lowertown's primary strenqth is its existing buildings, i which provide a significant historic character. Rehabili- tation and conversion of select buildings within the 11- � block core is the keystone of the Lowertown redevelopment process. Potential renovation projects include the Aslesen, Sperry, Buckbee Mears , Milton Finch and North Central Buildinqs. Each of these buildings , depending on , detailed feasibility analysis , may have the potential for successful conversion to other uses. For example, the lower floors can provide retail and commercial space � (e.�. , small shops, restaurants, �rocery stores , delica- tessens) while the upper floors are converted to offices or housing units. � 3.To ensure that new development within Lowertown is compatible with the historic character of the area. Lowertown does have the potential to include new develop- � ment. Development, however, must be sensitive to the historic character of the area. The Mears Park Apart- � ments is a good exar�ple of compatible development. Several blocks have vacant or underused parcels that would be appropriate for develo�ment. This development could include an apartment tower over the First National Bank � Drive-in Buildinn, a hiqh density residential superblock between Fourth , Fifth, Wacouta and Broadway Streets inte- gratinc� the existin4 Milton and North Central Life Build- � in�s , a medium size hotel on the southern half of the block directly across from the Depot. These major projects would add approximately 1 ,300 to 1 ,500 residen- ' tial units and 25� hotel units to the Lowertown area. The Farmer's Market site, at Tenth and Jackson, is a prime opportunity for a hiah-density mixed use develop- � ment. This could include housin�, retail , hotel and entertainment uses. It is important that the Farmer's Market be relocated to an appropriate site in the down- � town area. 4.To develop street-level pedestrian improvements which � link Lowertown to other downtown activities and enrich the aeneral Lowertown environment. Lawertown's attractiveness can be enhanced through the � development of street-level pedestrian amenities. These amenities can strengthen Lowertown's connection to its neighborin� subareas and create an attractive physical � environment for Lowertown residents and visitors. These improvements would consist of widened sidewalks, boule- vard tree plantinns, street furniture and ornamental lic�htinq. f 34 � � FIGURE 10 LOWERTOWN DEVELOPMENT CONCEPT � 1 Flgure 10 Lowertown Derelopment Concepf --- �� - - � j� ....... � � �-- � � � i� c _� �� o � �� 1 � � j�_ � � �� '' % � o �o � a L _ �� _� r � ��____: � , �� - - ,— - ; , �- � o \ � � � J 1��. , ' � � �i i �i � �� 0 � � � � �, � � �- --� �-- . � <<� ) � , iQ� �,� � � � ' �� a �� _� , d...�. , ��, � �� '�- �� -� � � : � �� ,,� /_ , !.S�ww��M.�w . �'/ _ �� j i o�� ,�I \� -, �;��— � ��'�� .� � e'i'��,- I' '--� � - !° �` J � � _ �� _�� o� � e � � � � � � � L7�; �� (�1�`[.�� -�. � � � o � � �� ` �� . �� : �� D� o � � ;� � �'( � �� a' � �J � ��,,,,,� _� �` --"�'1-�' ) � o c-� .+ew ...... 1 �� I � I � , -� I � _.......� � —�� o II �+w�� ti�MOM�ROW . � / I / _ , Residential � Open Space � ` Office/Service Industrial , - Government Mixed Use Institutional/Cultural , , 35 � � he desi nated throuqh truck traffic route � 5.To remove t g . from Sibley Street. The current use of Sibley Street as a desiqnated through � truek traffic route is in conflict with Lowertown redevelopment plans. Shifting of the major truck route ' designation to another downtown street is a short term solution to the problem, but would merely transfer the problem to another part of the Downtown Intensified � Center. Most through truck traffic should be shifted to the proposed East CBD Bypass. 6.To promote redevelopment of the old train depot area � through renovation of the depot facility and air rights development of a larc�e scale office/residential complex. The old railroad depot is a downtown landmark represent- , inq a bygone era. Currently vacant, it offers the oppor- tunity to be renovated into a more productive use. Possible uses include an office, commercial or a perform- � ing arts mixed-use center. Complementinc� the renovated Depot is the possibility of large scale air ricihts development on approximately ten acres of abandoned train ' yard platform to the south of the Depot building. The at- qrade level will be utilized by the U.S. Postal Service as a small truck terminal , but the postal service is � willing to sell the air rights for new development. Air rights development necessitates hic�h density, large scale projects, such as major office or apartment towers, to be economically feasible. ' 7.To encouraqe development of the north quadrant of Lower- town into a residential community with supporting ' commercial and recreational facilities . The vacant and underutilized nature of the north quadrant, � bounded by Jackson Street, I-94, and Seventh Street, offers the potential for the development of a mix of low and hinh rise buildings. About 20% of the units would be occupied by low and moderate income households and the � balance of the units would be market rate. The units and location would appeal primarily to households without children. The development envisions the creation of a � mixed use neighborhood including 1 ,200-1 ,500 mixed income housing units. The development would include supporting commercial space and recreation needed to create a resi- dential environment. New development would be the 1 primary emphasis. However, some of the existing build- ings in the area may be desirable to retain because of their s�und physical state and architectural siqnificance. , These potential renovation projects include the Hillcrest 36 ' , � , Development Building on Tenth and Sibley Streets and the United Binding Company Building on Eiohth and Sibley � Streets. Two churches are located within the North Quadrant area. The First Baptist Church, a historical landmark, must be sensitively protected in the area's � redevelopment, whereas St. Mary's Church might be acquired or integrated into new development. 8.To maintain existin� light industrial land use east of � Broadway and north of Third Street. The light industrial area east of the Lowertown core � represents a stable manufacturing base for the City of St. Paul . Its relatively clean characteristics pose no conflicts with Lowertown development objectives. � , S • • The Civic Center Study Area (Figure 11 ) serves as the , location of the St. Paul Downtown Intensified Center's major convention/entertainment complex comprised of the Civic Center Arena, Auditorium and Theater. Located � imrnediately west of the downtown financial/retail core, the Civic Center Study Area also encompasses the Rice Park area with its prominent historic buildings : the � Landmark Center (formerly the Federal Courts Building) , the St. Paul Hotel (soon to be renovated) , the St. Paul Public Library, the Minnesota Club and the Hamm Building, fronting on Hamn Plaza. A National Register fiistoric ' District has been proposed for this area which would include all buildin4s fronting on Rice Park and Hamm Plaza. Also included in the area is the St. Paul , Companies' corporate headquarters. The Civic Center Study Area is inwardly focused, with � Rice Park providin� a central public s�ace that is heavily utilized by pedestrians at all hours of the day. Throughout the Civic Center Study Area a number of major views to the St. Paul Cathedral on the bluff line are � evident, particularly along Kellogg Boulevard, Fifth, Sixth, Seventh and Eic�hth Streets. A vista of the entire Mississippi River corridor to the east, south and west is � also found at the intersection of Washin�ton Street and Kellogg Boulevard. r � , 3� FIGURE 11 CIVIC CENTER , EXISTING FORCES , ' F►gure 11 Clvlc Centar Area Ex/sting Forces �,� � � � ----.� �( Q �-�� .�.�.. y=` ��.� .�.�: . �� '.� � � � ��.��. � � �� .�:... �� -� ....- � � Q G� � - � � �,�.. � � �� - �. o �. -a 1 ' �� -°.�� ,s° � � .�- � ��` �� , � � C1�4 Cw�IF � '*� � � �� O d� � ,�(/ � c�%-":;�� I a M[1w1 �— � _-_�'"�"�`-\`_-^� �� 1, �� I ' I , , \\ ��.�`" � � U �� ,' Q'`. ', � � i., . (\\� �'� � � � .� , o . � � �� , "` �- � ° � � � ; � ,�� i � p� � � � � � ° 00 ` ---� __----�� ' � � � -.,- � � ,�;,�, ' � National Register Historic Property � � Property Eligible for National Register �! � �� Gateway to Downtown � � i � 38 � � � ' . The Civic Center Study Area is affected by a siqnificant ' amount of vehicular traffic, particularly on its edge streets: Kello�� Boulevard, St. Peter and Seventh Streets. As the Seventh Place Mall is constructed, this traffic � should be focused on these edge streets, leaving the interior streets to local trips and pedestrian traffic. Aside from the cultural/entertainment land uses provided ' by the public buildin�s in the Civic Center Study Area, a mixture of other land uses exists: commercial/service alon� St. Peter Street and office/service surrounding ' Hamm Plaza (e.q. , the St. Paul Companies headquarters) and lining Fourth Street (e.g. , Northwestern Bell Tele- phone) . � The Civic Center Study Area provides two major oppor- tunities for develo�ment/redevelopment: � - The St. Paul Companies land presently utilized for surface parkinq alona Seventh Street adjacent to the St. Paul Com�anies headquarters. ' - The Corr�nercial Bank block and the western and southern portion of the St. Paul Hotel block east of Rice Park. ' 3.3. DEVEL PMENT BJECTIVES 1 .To maintain the Civic Center Area's unique blend of mixed land uses (Figure 12). ' The Civic Center area contains historic landmarks, public institutions, corporate office headquarters and commer- ' cial activities. The objective for this area is to main- tain its diversity of complementinq land uses , and to upqrade the area throuah private redevelor.r�ent and reno- vation projects and selected public improvement projects. � This balanced approach is a recognition of the area's inherent strengths and potential opportunities. � 2.To ensure that new development and renovation within the Civic Center Area is compatible with the proposed Rice Park Historical District. ' The proposed Rice Park Historic District is intended to safeguard the historical si�nificance of the area. Rice Park, the Landmark Center, the Public Library, the Hamm ' Building and �t. Paul Hotel support the district's archi- tectural and historical significance. Sensitivity to this historic character will be an essential criterion for , guidina potential private and public redevelopment actions. Specific historic district objectives include: , 39 FIGURE 12 CIVIC CENTER � • DEVELOPMENT CONCEPT � ' Fl�ure 12 C/vlc Cenfer Area Deve/opmenf Concepf \ �_ ,— \ � 0 , _� / �"°"r � �- � %� � ` � �, _ �` �� ` � o � o � , 1 � \ � �%^\� 4� � �! �� 0 �� e �J „�.,„'"" -�,, " � -- =-� _ �a , �"`� � � �° � ,�� - �_ , _` � � � � � a - - � � �„ ��--� �� , � �� -- � r ��.� � � >_ � � � .��i'�= \ ! \ o..,�, , � �� " :_ ° 0 � ` .� �' �� 1 I i;��. F . ,;�' � � � ,� �� , \ , � 5' \ . ./�� ,� , �� f \ ° �- � ' ,- �� , � . :. I ! j ' � �'� ,.....-� ° o ` � ' # � �� ` � � Q p % , i i � i o � i, � � � � �___; _ oo � __--� 0 0 0 _- �� _ - �� 1 Office/Service ' ,�,.;� Institutional/Cultural :Q� � Open Space Mixed Use � ' ' � 40 , , � ' - Maintainina the sense of closure around Rice Park. ' - Maintaining the sense of human scale for street level facades facing Rice Park. - Adherinq to the best standards of urban design compati- ble with the historic and architectural character of , Rice Park. 3.To develop new Civic Center exhibition space and ' theater facilities. The St. Paul Civic Center currently consists of a modern ' 16,000 seat arena along with outmoded exhibition space and theater facilities. Because downtown St. Paul is to be a regional performing arts and convention center, these antiquated facilities should be replaced. The ' design and physical orientation of these new facilities should complement Rice Park and adhere to historic dis- trict guidelines. , 4.To encourage the St. Paul Companies to develop the parcel between Fifth and St. Peter in a manner consis- ' tent with this plan. The St. Paul Companies is a major land owner within the Civic Center Area. A corporate office headquarters, ' which has recently undergone a $17 million expansion, and several acres of surface parkinc7 for employees make the St. Paul Companies a malor potential development force. ' Its long term development objectives are fluid but as they become more definite, the St. Paul Companies should pursue new development which has a positive impact for the Civic Center Area and the Downtown Intensified Center ! as a whole. 5.To develop a coordinated private/public effort to � sustain St. Peter Street as a prosperous commercial activity area. , St. Peter Street from Seventh to Fourth Streets is noted for its unique retail and commercial activities , as well as the aginQ character of its major anchor, the St. Paul Hotel . With the advent of the Seventh Place retail ' development increased strain will be placed on this older commercial district. A coordinated private/public effort is needed to sustain the area. Private actions should � include renovation of the St. Paul Hotel , supplemented by new commercial and residential development on the remainder of the block and the new Cornmercial State Bank , ' 41 � � facility, as proposed, either on its present site, or as , part of the St. Paul Hotel block. Pedestrian amenities should be provided at street level (e.�. , widened side- walks , boulevard trees , ornamental lighting, street ' furniture) with the principal emphasis on St. Peter Street as well as improvements on Market and Washington Streets. ' 6.To improve circulation to, from and within the Civic Center area. ' . Proposed skyway linka�es should include: - St. Paul Hotel east to the Lowry Medical Arts block. , - St. Paul Hotel north to new development on the present Commercial State Bank block. - Corr�nercial State Bank block west via a tunnel to Land- , mark Center. . RS DSCI C • • � CENTER STUDY AREA The Arts and Science Center (Fi�ure 13) is the cultural/ entertainment area in the St. Paul Downtown Intensified Center. Located on a aentle slope between the financial/ , retail core of the downtown and the State Capitol complex, the Science Center Study Area serves as the qateway to downtown St. Paul from the north. The St. Paul Arts and , Science Center, and the Science Museum of Minnesota, are the major landmarks in this study area. From the Arts and Science Center Study Area a number of , views are evident, particularly the view corridor north alono Cedar Avenue toward the State Capitol complex and west� alonq Eleventh Street toward the St. Paul Cathedral . � Within the study area, the architecturally significant facade of Central Presbyterian Church is visible alonc� Exchanc�e Street. , The Science Center Study Area is a mixed use area with si�nificant development/redevelopment opportunities. Land uses include the culturalJentertainment/institutional � uses in the Science Center and state and local caovernment uses alon� Eleventh Street (e.a. , the Public Health Building, the Capitol Square Buildinca, the Denartment of , Public Safety Buildin�) . Located between the State Capitol complex and the retail/ financial core of the Downtown Intensified Center, the � Science Center Study Area contains traffic arteries (St. Peter/Wabasha Streets , 8th-9th Streets, P�linnesota/ Cedar Streets) that carry si�nificant amounts of auto, ' 42 , ' FIGURE 13 ARTS AND SCIENCE CENTER AREA EXISTING FORCES , , F► ure 13 Arta and Sclence Center Area Ex/sfln Forces 9 q �� a�wWw � . , I// \ ,��\ [ � e .. r i I `-` \ . . .� �� J •� �a [] d � ' �) \ � � a � �� i� � � � ; � ,� ��, 1 9�D� , . _ a�-,� _ � �0 _ � 1 0 ��a, __ �.... ,yJ^'' � ; ; �[m� O _ �'^ k 3's� � .�' � � � I. ^ �� O �k ��v � � � � . /I ' ,N �M f'r�* :.� 1�ww�w } �G._ U �� , , � C� i � /� 0 � �/ " � �r.:;,� »�... � �� ,,� 1 ��' � - � r� �- 4 � Ia�.: o �? � �- ��o � , : � ,,� � �—; _ a o� �,, � �� o � � �� ... �_ �� _ � o 1 ` �-° r ,� 6 °'""°""� i\'\.� p� � r � I � :. � .a �c.�...M.ww .. a.r e.... O �^"' � � l�� IO I . � Qa o...... �..�. v � �a�.� o L .r. . o � � o o � - L 1 a , B (- . ' � National Register Historic Property � Property Eligible for National Register , �J Gatewa to Downtown /_'\ y , ,�• . .Y_ `r � Vacant or Underutilized Land �,��. , , , � 43 , 1 bus and truck traffic. In addition, fostered by the ' mixed land use character and substantial areas of under- utilized land, parkinc� lots are scattered throughout the ' study area. The North Wabasha area includes the blocks bounded by St. Peter Street, Eleventh Street, Cedar Street, and ' Seventh Street. Because of its qreat potential for redevelopment and renovation, the North Wabasha area is the subject of a plannin� study by the St. Paul Depart- ' ment of Plannin� and Economic Development. The study, entitled "The North Wabasha Plan" , recommends that the North Wabasha area should be downtown's center for � culture, arts and entertainment, as well as a residential community. The Science Center Study Area provides three major oppor- � � tunities for redevelopment: - Vacant and underutilized land located on the west side of Jackson Street. ' - Vacant and underutilized land frontina on Minnesota Street, including the deterioratina buildings and park- ing ramp located in the corridor between Eic�hth and ' Ninth Streets. - Mixed rehabilitation and new development north arrd south of the new Science Museum. Other opportunities for scattered redevelopment or reuse , of existing structures are found throuqhout the Arts and Science Center Study Area. ' 3.4.2 DE EL PMENT OBJECTIVES , 1 .To maintain the Arts and Science Center Area's multi- functional role as a cultural , qovernmental , residential , and corrWnercial service activity center within the Down- town Intensified Center (Figure 14) . ' The Science Center Area's multi-functional role is a reflection of its existin� strengths and potential oppor- , tunities. The area's western sector, centered around the Science Center complex, is a qrowing activity center. Theaters, museums , community health, safety and social service facilities , churches and apartments are indica- ' tive of the area's strenqth and foundation for future growth. The area's eastern sector, an underused commer- cial area, offers the potential for commercial service/ ' office/retail development which could complement the Seventh Place/Financial Core and North Quadrant activity areas. ' 44 � IFIGURE 14 ARTS AND SCIENCE CENTER AREA DEVELOPMENT CONCEPT � ' Flguro 14 Arts and Sclence Cenfer Area Dsrelopmenf Conce f P - � � � u...� -- � � � ❑� –� � � � � � I �� — � ° � oC� _� ` ',��' II — �_� � � o � - 1 � � �-l� � -- � ��° —_ —__ � `�` _ -- a� - �r ��— �� ,� �,� —�d� � ' � � T� � � r-- �� o �o � i \ � � ° � � L�- �i � ' D """ �� i `\\ l o a � ' '� ( D � � � _ ,� � _ — _ , I </�� ; 4� ' � l �I[� �❑ � �� 1 ��- ' ��0 ' �� c� � � � i�� _ �� — F �� i n � � �� . ,� ° ❑ � .,�o �.,... _-J�� a ��, __�� -�_ � �� ; ��,� � C�.k bn�w O (�/��r I I I❑ [��wn��M.w� vQ �� ; lo i ' \ a ❑ G��n1 - - �`- � IIr�M Mw��. I � I �I `e�� - iiil��1 �� l ----� �� / � ' 4 � � � � I� W� I I I � a a ' M �` ' . Residential Office/Service ' Government � , Institutional/Cultural � Open Space 1 Mixed Use ' ' � 45 1 � ' 2.To ensure that new private development within the Arts and Science Center area is compatib�e ��vith the desired � mixed land use character of the area. The Arts and Science Center Area has numerous parcels of underutilized land which provides opportunities for the � private market to initiate new development. Every block within the area, with the exception of the two Science Center complex blocks, has at least one parcel which ' could lend itself to expansion or new development. An excellent example of a high density residential develop- ment is the new Gallery Towers condominiums, near the ' Science P�useum. This residential development completes . the northern wing of the new Gallery ��ledical Buildinq complex. Appropriate development opportunities include: - Mixed comnercial development along Wabasha between � Exchange and Eighth Streets with a strong pedestrian orientation for sidewalk level facilities (e.g. , shops. ' cinemas, restaurants, night clubs) . - General mixed commercial development on portions of the blocks bounded by Minnesota, Jackson, Eighth and ' Eleventh Streets. The new development which will occur should reflect the pedestrian-oriented scale for the Downtown Intensified � Center and include provisions for possible skyway connec- tions and easements. 3.To encouraqe private renovation and rehabilitation of r existin� buildings within the Arts and Science Center area. ' Renovation and rehabilitation can play an important'role in the development of the Arts and Science Center Area: A successful exar�ple of the renovation process is the , Ramsey County Juvenile Detention Center on the corner of St. Peter and Exchange Streets. Another opportunity is the rehabilitation of a former warehouse, the Rossmore , Bui 1 di ng, for i mproved cor�nerci al use. 4.To develop the North Wabasha area as a mixed use area. � , , 46 � , FIGURE 15 CATHEDRAL HILL/WEST SEVENTH STREET STUDY AREA EXISTING FORCES I � F/yure 15 Cafhedra/Hill/West Seventh SL Area Existing Forces ... , � > � �� I �:: �.� � �-W--,� 1 1 � New de ve 1 o prr�n t should include renovatin ings and addinq new structures . 9 existin � entertainment (theaters �ses should include u��d restaurants, and housin ' n�qhtclubs) cultural Pa�d to urban desi n �' Special attention should be b��ty W�th the Q �r�teria that will ensure 1 t�� rest of the downtown compati- provide a unique atmosphere for� and at the same Area. Opportunities should also be the North Wabasha replacement of the low income housin�a�f a�a��able for � because of redevelopm�nt. . units are lost 5.To er�sure that the Ei � �n a manner to facilitate/N�nth Street pair is the corridor, pedestrian movement a cross ned The Eiahth/Ninth Street � traffic, qenerated b pa�r will carry heavier vehicular Urban design measures should be�incor �n thoroughfa re desi n this area. � trian q wh�ch facilitatespnorthtlsouth the new movement, These should include attractive land- scapinv and intersections Pedes- trian movements Wh�ch would allow safe reside within thepared�ularly the senior Pedes- � citizens who 6.To develop skyway )inka Science Center area develo that inteqrate Arts and � Pment. 7.To develop street-level � link the Arts pedestrian amenities which I ' Seventh Place, and Science Center complex area to The Arts and Science Center , walk level amenities, area �an be enhanced b area�s attractiveness andese amenities would im roves�d?� trian link between SeventhaPlace and � the Center p►"ovide a pleasinq activities. Arts and Science es- � sidewalks, boulevardrmprovements woulr� and ornamental �� tree plantin S consist of widened ghtinq. 9 � street furniture, � � � ' � 47 � � � A number of. vehicular arteries run through the Cathedral Hill/West Seventh Street Study Area, carryinq auto, bus � and truck traffic to and from downtown via lnterstate 94. This area is significantly congested, particularly during the peak hours, and will rer�ain so until road construc- tion in the Pleasant Avenue corridor is resolved. The � resolution of this situation will also permit the desig- nation of appropriate land uses for development to comple- ment existing facilities and to take advantaqe of the � varied topoaraphy. 3.5. DEVEL PMENT BJECTIVES � 1 .To resolve the Pleasant Avenue corridor design. The unresolved status of the Pleasant Avenue Corridor's � design is a major deterrent to development in the Cathedral Hill/West Seventh Street Area. The 1978 Minnesota Legislature mandated that Interstate 35E should ( not be built within the corridor and also initiated the study of alternative parkway design concepts. From the City of St. Paul 's perspective, the design should meet ' the following criteria: - Providinn an attractive environment for new residential development in the Lower Cathedral Hill area. � - Providinq good access to and from the Downtown Inten- sified Center. - Consider the development of a commuter parking facility within the vicinity of and connected to the parkway. � - Providin� an attractive physical link for pedestrians walkinq between the Downtown Intensified Center and the upper Cathedral Hill area. i 2.To encourage the private development of inedium to hinh , density housing within the Lower Cathedral Hill area. � - The primary objective for the Lower Cathedral Hill area is the development of a new residential cor►munity. The ; � key to this development is the final resolution of the 1e Pleasant Avenue carridor design, which v�ill determine specific development sites. Generally, the planned development area is east of Kellogq Boulevard and north- S � west of Main Street. Approximately 1 ,300 new residential units could be accommodated within developable sites along the parkway. New development will be supplemented � by the renovation of the old Miller Hospital complex. dE - The Lower Cathedral Hill community would offer a unique , and exciting urban lifestyle adjacent to the Downtown � Intensified Center. � -� u- 50 � _ � ' � � 48 � FIGURE 16 CATHEDRAL HILL/WEST SEVENTH STRE�T STUDY AREA � DEVELOPMENT CONCEPT , Fipuro 16 Cathsdial HIIUWssf Ssrsnth St Area Devslop�nent Concepf . ` � . � >�- � � �� , � /� � �� o 0 .�� _, , � ,� ,.. � , �� .� � � � t � � �. / , � ; � ;,, � .. �� , �� O � ., �, . � �--� ., / � � \ , � `� � � � ��,, �� o � / ,�, �� , �� —_ i � �; � � � � ___ _ , - ._ : r � __ _��____ �� __ .�,� _ ; . � � _ _ .� a o \ � � -- � � : � : � __ �,,,,.�- 4 � � ..... � � # �� : � 1 �f."o\ , �� $A �J i �� _ �� : . _ � � ��/.�_ �—, \ � .y k;':�'`"<:S<:' f\, �/ � o �, �.s�.^ �� " �. 4 ;^� y ��°` .,:>c'?: ";�:�.;::.,a n e�.rc.�..� �l � �� :. I\ � � .cii;;� � a � �� / `.' .:� : : 4# ;. � Q ... `��I�� MwnY ; � _ �.�� a a , /�\ J y�� F � �l � 3 Q i� �.� .�� a�er.:x�. � ., - o � Q � �� `t M , �� ° � �� ,� ��--� � � _ � Ci � / —, i � � � � � __ o o - a —� — � �� -- ��. , ��,` Residential Institutional/Cultural Light Industrial ��.� :: Retail/Service � Open Space Pleasant Avenue Corridor and � Fifth-Sixth Street . Government : Mixed Use Connector � 51 � i 1 3.To consider development of a commuter �arkinq facility at the vicinity of Kellogg and Pleasant. , 4.To utilize Smith Avenue as a develo�ment spine for medically-related support facilities to the United Hospitals complex. , The United Hospitals complex is a medical center of regional significance. It was created by the merqer of � three older institutions, and is a catalyst for additional medical-related development (e.q. , physicians offices, extended care facilities) . This development should occur � east of United Hospitals alonG both sides of Smith Avenue. 5.To retain existing land uses within the Chestnut-Eagle Street area, improvinq the transition between downtown � and nearby residential and commercial areas. The Chestnut/Eagle Street area, bounded by Exchange, ' Chestnut Streets, Shepard Road and Kellogg Boulevard is a transition zone between the Irvine Park historic residen- tial area and the Downtown Intensified Center. The � western half of this area represents a potential residen- tial development site. The area will be subject to a detailed planninq effort, including market analysis , development plannina, programming and implementation � strategies to integrate existing industrial uses with medium/high density residential uses, public open space, peripheral parking and thorou�hfare corridors. , 6.To retain scale and character of the existing commer- cial activities alona West Seventh Street. � The West Seventh Street commercial strip is a major gate- way into the Downtown Intensified Center. The area is experiencing a revitalization of commercial activity � which includes small retail , antique and wholesale shops. These activities are occurring in a wide assortment of � structures, several of which retain their ori�inal 1890 � commercial storefronts. The development strategy for this area includes: - Retaining comnercial activities which relate to the , West Seventh Street neiahborhood and complement the adjacent Downtown Intensified Center. - Renovation of existing commercial structures (with � emphasis on historic preservation) . - Encouraging new, small scale development on vacant or underutilized parcels. � - Adopting urban design guidelines which will preserve the area's historic character and provide a stroncr, unified street image. 52 � ' .. � 1 • .6.1 STUDY AREA PROFILE 3.6 STATE CAPITOL STUDY AREA 3 The State Capitol Study Area (Figure 17) serves as the � , home of Minnesota state government. Located on a gently sloping knoll above the St. Paul Downtown Intensified Center, the Capitol Building is the major landmark in I this study area. Secondary landmarks include the Ramsey Hospital complex to the east and Bethesda Hospital to the north. ' The Capitol complex is readily viewed from a number of � vantage points to the south, particularly from downtown along Cedar Avenue and from the St. Paul Cathedral along ' John Ireland Boulevard. These thoroughfares provide views throuqh the Capitol Approach Mall to the Capitol Building. The termination of the bluff line north of � University Avenue, to the northeast of the State Capitol Building, provides a vista of the Capitol complex and the entire downtown St. Paul area. ' , The Capitol complex is composed of office an� govern- mental functions located in a campus setting on the Mall south of the Capitol Building. Surrounding the Capitol , com�il ex, a mix ture of 1 and uses exi sts: corrnnerci al/ service to the west (Sears Company and the Rice Street/ University Avenue corridors) , residential and institu- , tional to the north (Bethesda Hospital ) , mixed corr�nercial and institutional to the east (Ramsey Hospital complex) and Interstate 94 prominently separating the Capitol complex and the St. Paul Downtown Tntensified Center to , the south. / The State Capitol Study area is crisscrossed by a numb�r � of arterial streets, particularly those crossing the Capitol Approach Mall . These create excessive noise, congestion (both visual and functional ) , air pollution and pedestrian safety hazards. In addition, parkinq lots ' are haphazardly scattered throughout the study area with poor relationships to rider destination, land use and visual inteqration into the environment. ' 1 ' . � ' S3 FIGURE 17 STATE CAPITOL AREA I EXISTING CONDITIONS � Flyure 17 Stafs Cap/fo/Area Ex/sHny Forces ' '��: ; ' '; ! ; � E!: ; �: .; r...w �: �: ='��—..-�:� :: � <. `. ' '� � �: 1 �- � ' ; ;� THE A �� SPI L �� ; � I � �� ' - - ;'� � � p(�o ' -�F , /l I ; ` O(- ; �� o �� : � � � � � MINN SOTA ,� o o�� a o .�° � ":�;;2�. � `-3�'`- ,r � ��'a''Q S AUL- � �`�I �`�<�:;�' �`� # � RA Y � � I ,,,.. :.. f?;:. .._._.�....'`._....� P�e �'� �� ; .,�. � � I� '' � :;��;;,�;.�;� .;��<:,� .� 001� 0 � `J � s��,�z�� `� :�;�� d � .� ��:��. �e e� ��:..�� o � , ;�`�.,��a.� � � t�i�`i�"l��.'t` `'�`.:, �`��* � � �'�� '� � ��`x�'`$�� . � 2�.�.�'''° .a<. '� � � �,�,��`�'�:. � u.��y..��. '�" � w "� O � �3�J �'`n'�..��ii':+�� . Sg�F�7e'�"iC,�.�. /'^ M^" �Ya,fa ::�k'k O � S�?>:O(e`d,t;�`�;�:... '%1:4:::�±�'k:.rA�o:a :. ). }�,� : .�... �0` �j L � ' � ( i x 3' �� L d�,5` r r y , �d \ i�: .:��sy�3 t'k.?k:h "..,.'.�.'.a,.:'::. �,5�. ..D�.: �. �„%�,�.� ��.{`.¢� � `,:oY�y.i :fi/,. `i{}Y :,'°j.. 6 ' '.��q,y.�y' �x i` ,..j..,� .`.}� "� k .cs � � ' � D � '. '� �$ � �9 � �. x�'�:fi;tt`Y`�.N� � � :: � � � ::. � ,.,�{ �ti� _ �� .. '�� ^ : �� . . . . �i � ': .: �: . I �: :.� � : . .� _ � .: . . . �� ; ,s' .'� ��; ' � : :: � .: �:: '.: : '� ' �� ' .' �::: ;�: . �. : � �� ' � . . .. .. : �, .. : �.:.. �� .' .. '...,"' .._ �.W� :� ':.:: ':� �� '; .': . �:�.� �:`: .��. <:: . -�� . .,: �. :'. �. ' �`��:�?'� National Register Historic Property ,.,.;. ..; '�.::::::�:,':�:�: ' � , , � 54 � , I 1 , 3.6.2 DEVELOPMEPJT OBJECTIVES 1 .To promote development of the State Capitol area in a manner which is compatible with the plans and policies of the Capitol Area Architectural and Planning Board 1 (CAAPB) anu City of St. Paul (Figure 19) . The Capitol Area Architectural and Planning Board's 1981 ' Comprehensive Plan outlines an overall development frame- work for the State Capitol area. I The basic principles of that Comprehensive Plan include: - Encouragin� �overnment, office/service, commercial , residential and open space land use patterns which are mutually supportive. , - Developin� a climate-controlled pedestrian circulation system that ties together existinc► and future state government buildin�s and links the State Capitol � complex to the Downtown Intensified Center. - Developin� a more distinctive Capitol setting throu�h reroutin� of selected streets and redesic�n of open space approaches to the Capitol Building. � - Replacinq scattered surface parkin� lots ��ith parking ramps which are tied to state buildin�s by pedestrian tunnels or skyway connections. ' 2.To strenqthen linkages between the State Capitol complex and the Downtown Intensified Center. IThe State Capitol complex and Downtown Intensified Center are currently influenced by development patterns which ' separate these two important activity centers. The consequence of these development patterns is diminished employee, visitor and patron interaction between areas. I The Capitol Area Architectural and Planning Board's Comprehensive Plan calls for the creation of a spine of development between the State Capitol and Downtown , Intensified Center. The spine is located between Cedar and Jackson. There should be stron�er pedestrian, transit, and visual links between t.he Downtown Intensi- � fied Center and the Capitol area. � � ' 55 FIGURE 18 STATE CAPITOL AREA � DEVELOP�IENT CONCEPT ' ' Flpun 18 SbN l�plfol Arw D�wlop�M Conc�pt _ _ � � � , ,-__ �� i � �...�.. _ ._ � � ...�.�:�:�� .t. .� �� v :�. � , x . . :. ° �.p - �— �.� .:�:: .;#;.ri�<>:f:x::;k;; U � �� :�:� �� :>:�.,� » a�:;�. <;F,��€� �. �� .�� ,. �:�r�<��.�.�.: ...�� :::�#.... —� � �� _� ._. �= � �..' oa- :.:�:¢t:::�..,- : ..� , :._; �{ # : �, t:, - � � , �# ��... �'�i� .,��a � ,:''<?��`><`'. k;•�� F' �ro`�.:�`` ,�, s � � . �.,w,............�.�J .'� '..�� . I � r �J� � � r � , � •�y`�";��,'� '� y.��' '+? y��' •;?'�p "F��'��n., y� / ':<>.' ,`:':;ar <..,'7,t.on'•• � � ��< � �, ;: � � � � \ ��'� � I � 0 � � ' D � o a �a � \ �a ; � � o ` . � o �0 � 1 ---._ � _ � O 00 I �°o i ,, , � � � _ � � o � Q � � v . .__ > O ., �' � �' \ O D � o � r+. o O � � Residential `"� Institutional/Cultural Retail/Service Open Space 1 - Government Mixed Use � ' 56 ' � ' , 3.To encourage the State of Minnesota to meet its office ' space needs within the Downtown Intensified Center, rather than by constructing new state-owned office space in the Capitol area. , Currently, there is ample office space available within the Downtown Intensified Center. Some state departments and aaencies must be located immediately adjacent to the ' Capitol Building, but many can and do effectively serve their functions at some other location. � The City of St. Paul proposes that the state should meet its needs for additional office space in existing down- town office spaces as much as possible. The state should consider building additional state-owned office space ' only if the supply of office space downtown is exhausted. ' � , � � � , � � 1 I57 4.0 DEVELOPMENT PROGRAM i � The previous chapters of the Downtown Development Plan ' outline a framework for future development in downtown St. Paul . Crucial questions regarding the implementation , of this plan remain to be answered: - l,lho is responsible and what level of participation is , required from the public and private sectors? - What specific financial resources does the public sector have at its discretion for possible use in stimulating private development and carryiny out public ' sector responsibilities? The intent of this chapter is to answer these questions , and provide an overall picture of capabilities and actions needed to achieve St. Paul 's Downtown Devel�pment Plan. 4.1 FINANCIAL RESOURCES Today s financial cl�mate requires a close public-private � partnership to accomplish major urban development projects. Whether such projects are initiated by the public or � private sector, the two must work cooperatively in accom- plishin� a project. St. Paul 's Downtown Development Plan has identified a scale and magnitude of development which � will require effective programminq of public-private financial cooperation. The intent of this section is not to identify the exact mix of public-private financial efforts but rather to identify the public-private finan- ' cial resources which are available and may be drawn upon. Figure 19 provides a summary of resources which, if effec- tively used in a cooperative manner, can lead to the � successful implementation of the Downtown Development Plan. . � � , � � � 58 ' IFIGURE 19 PRIVATE AND PUBLIC FINANCIAL RESOURCES � , RESOURCE TYPES USE ' 1 .PRIVATE FOR PROFIT Any capital expenditure. Availability is directly tied FINANCING (e.g. , to the anticipated rate of return on investment. Commercial Bank Loans , I Insurance Company Loans, Owner Equity, Developer Capital ) ' 2.PRIVATE NON-PROFIT Capital expenditures which meet specified �uidelines. FINANCING (e.g. , Grants, Loans, Loan Guarantees) I3.CITY RESOURCES a. Industrial Revenue Bonds Housing, corranercial , and industrial development. Issued , through the St. Paul Port Authority, the tax exempt feature of the bonds allows them to be issued at favor- able rates compared to conventional financing for the same project. , b.Capital Improvement Bonds Any pub]ic capital expenditure. Capital Improvement Bond (Chapter 234, State Law funds are dollars borrowed by the city which are repaid � of Minnesota, 1976) from a levy on property. c.Auto Parking Facilities Parkin� Facilities/Parking facilities Bond Funds are Act (Minnesota Qeneral obli�ation bonds exclusively for acquisition of , Statute 459.14) land or construction of automobile parking places. They are repaid throu�h levies on, assessments on, or revenues from the parkina facility. ' d.Tax Increment Bonds Economic development/Tax Increment Bond Funds are dollars borrowed to finance redevelopment of specified parcels of ' land. These bonds are repaid throuqh increased property taxes resultin� from redevelopment in the district. e.Public Improvement Aid Streets , sidewalks, alleys/Public Improvement Aid dollars � (PIA) Fund are local property tax monies. f.Assessments Certain capital improvements wholly or partially funded 1 through char�es to benefittin� property owners. v.General Fund P�lonies Any capital improvement, as determined appropriate by � City Council . � ' ' 59 FIGURE 19 PRIUATE AND PUBLIC FINAP�CIAL RESOURCES I (continued) � RESOURCE TYPES USE ' 4.FEDERAL RESOURCES � a.Housinq and Comnunity Community development and housing projects (Corr�nunity Development Act Block Development Block Grant Proaram)/The entitlement qrant Grant (CDBG) was authorized by Congress in 1974 and re-enacted in ' modified form in 1977. b.Urban Development Action Economic development and facilities revitalization/Supple- Grant (UDAG) mental Program to the Community Development Block Grant ' � Proqram (UDAG) . c.Federal Aid Hiahway Funds Used for the construction and repair of streets and high- , (FAU) ways on the designated FAU system which includes inter- state, primary urban extensions and urban systems. 5.STATE RESOURCES ' a.Minnesota Housing Finance Mew housina construction and rehabilitation/MHFA can Agency (MHFA) issue tax exempt bonds to finance housing projects which involve at least 20� low and moderate income families. ' The bonds offer favo�°able terms compared with eonven- tional financing. b.P�unicipal State Aid (MSA) Repair/construction/maintenance of Municipal State Aid � roads and bri dc�es. c.Minnesota Department of Repair/construction of state highways and bridaes in ' Transportation (MnDOT; St. Paul/No transfer of funds involved; all contracts are let and administered by P1nDOT. d.Legislative Commission Acquisition and development of local parks and recreation , on ��linnesota Resources facilities/Administered by Plinnesota State Planning. Grants , 6.METRO AGENCY RESOURCES a.Metropolitan Parks and Renovation/development of regional park and open space Open Space Commission areas in St. Paul . ' Grant 7.COUNTY RESOURCES � a.County Aid Repair/construction/maintenance on County State Aid (CSA) system roads and bridges and county roads. � � � 60 , 1 5.0 APPENDIX 1 , G POLICY 5. EXISTIN FRAMEWORK The Metropolitan Council in March 1975, adopted a � Development Framework Policy Plan. A number of policies within that plan address the term "Metropolitan Centers" � which include the central business districts of St. Paul and Minneapolis and adjoinin� residential , commercial and � institutional areas. Specific development policies for Metropolitan Centers are: ' POLICY--Maintain two strong, diversified Metropolitan Centers comprisinq the central business districts of Minneapolis and St. Paul and the residential , co�nrnercial , � and institutional areas around the central business districts. This policy should be supported by actions to: - Make the Metropolitan Centers into living and workinq ' centers to encouraae more families to live there by developin� medium and high density housing for a full range of incorr�es , providing recreational open space, and , maximizin� use of skyways and transit for movement within the centers. - Maintain and strengthen employment and services by , attractina institutions , office space, personal and professional services , retaining regional cultural and entertainment facilities, and accoRUnodation facilities , within the Metropolitan Centers. - Improve the environmental quality of the centers by preservinq the scenic and recreational assets of the l � river and riverfront and provide increased oppor- tunities for people to enjoy them. Maintain air, water and noise quality within state and federal standards. , . In addition to these Development Framework policies are four important transportation policies adopted by the , Metropolitan Council which relate to the Metro Centers : POLICY--Encourac�e living in the Metro Centers by provid- ing a ci�rculation system with a hi�h level of all-day , service for residential developments surroundinq the central business district core. � � I , 61 � � � POLICY--Emphasize pedestrian movement in the Metro Centers by: � - Concentratinq parking facilities on the fringe of the core areas. � - Linkinq the parkinq facilities to the core area with skyways and a downtown circulation system. - Completine the planned skyway system and clearly iden- , tifyina pedestrian access to this system, and movement alon� it. , - Minimizina conflicts with bicycles and the movement and delivery of goods. � POLICY--Provide for safe access to the Metro Centers by � bicycle and provide storaqe facilities. POLICY--Provide for goods movement with an efficient and ' effective distribution system. CITY POLICIES , The Planninq Corrrnission and City Council of St. Paul have adopted three plans which would affect downtown development. The plans are the CBD Concept Plan, , "Tomorrow's Framework from Today's Foundation, A Plan for Downtown St. Paul " , the Transportation Control Plan, and the Econor:�ic Development Strategy. � The CBD Concept Plan provides a framework of general aoais and objectives for the downtown area. This frame- work (Figure 20) is intended to address the questions of: ' 1 .What should be the role of downtown? 2.How should it develop? � � 3.What human needs should it serve? 4.What should be its image? The second plan, the Transportation Control Plan, , identifies specific strategies and policies for alleviatin� a demonstrated downtown air pollution problem generated by vehicular traffic, While directly impactin4 � transportation functions , it does have indirect implica- tions on travel modes and accessibility. Plan strategies fal l i nto th ree mai n catec�ori es: � � 62 ' ' 1 � 1 .Increased mass transit ridership, car pooling, and van poolin� by downtown employees. � 2.Development of a frinqe parkinq system to accommodate downtown employees. 3.Reduced traffic con�estion in the downtown through street network improvements and traffic flow measures. � In addition, the Economic Development StrateQy was adopted in 1980, which is citywide in scope. The Economic � Development Strateay extensively addresses downtown development. Its major policies have been incorporated here, on pa�es 25-26. I 1 1 1 1 . 1 1 � 1 1 1 1 1 , 63 FIGURE 20 CBD CONCEPT PLAN , ' GOALS OBJECTIVES � ` Enhancement of the compe- - Provision of the necessary ranqe of central goods, titive position of downtown services and facilities that any other physical complex � within the reoion with in the adjacent suburbs cannot match. rectard to its social and economic role as a focus - Improvement of the qualitative and quantitative � for retail , finance, strenc�th of the downtown land uses to maintain the business , professional , competence essential to the downtown's specialized role. government, communica- � � tion, and transportation - Creation of conditions favorable to the qeneration of activities. private new investments. Continued development of an - Stren�then relationships among land uses within the � effective program for downtown area throu�h development, redevelopment and restoration of the downtown restoration where needed. area's efficiency by means , of public land assembly, close private and public collaboration, and appro- , priately timed capital investments. Creation of an attractive - Development of housina areas and related services � pedestrian-oriented place within downtown to create an environment for a 24 hour of personal communication population. in which people may ' exchanc�e services, goods - Development of a public awareness of architectural and and ideas, and enjoy social aesthetic values. and cultural opportunities. � - Continued development of private and public support for arts and sciences. Utilization of all natural - Enhancement and preservation of those yet untapped , and man-made assets to natural and man-made assets within the downtown area elevate the stature of the (Mississippi River, bluff areas , Union Denot, etc. ) . downtown area and identify � and enhance its distinctive - Development of a public relations program to promote imaae. the downtown area's capabilities in meeting the needs of the St. Paul cumnunity, the re�ion and beyond. - Development of new activities in and around existing , buildin�s and centers which are all a part of St. Paul 's heritaqe. � , � 64 ' � , � ' Brambilla, Roberto and Lonqo, Gianni , For Pedestrians Only: Plannina Desi�n, and Manaqe- � ment of Traffic Free Zones , Watson-Guptill Publications. (New York, New York, 1977) ' Capitol Area Architectural and Planninq Commission. Comprehensive Plan for the Minnesota State Capitol Area. (St. Paul , Minnesota, 1981 ) Capitol Area Architectural and Plannin� Commission, P1innesota State Capitol Area North IStudy (St. Paul , Minnesota 1975) City of Chicaqo/Chicaqo Plan Commission, Chicaao 21 : A Plan for the Central Area � Communities. (Cliicago, Illinois, September 1973) City of Detroit/Detroit City Plan Commission. Detroit 1990/An Urban Design Impact for the Inner City (Detroit, P•lichigan, 1971 ) � City of Minneapolis/Minneapolis Planning Commission, P�letro Center '85 (Minneapolis , Minnesota, March,1970) � City of St. Paul/Department of Planning and Economic Development, Parks and Recreation Plan (St. Paul , P�innesota, 1976) ' City of St. Paul/Department of Planning and Economic Development, River Corridor Plan (St. Paul , Minnesota, 1977) , City of St. Paul/Department of Planning and Economic Development, Street and Highway Plan (St. Paul , Plinnesota, 1977) , City of St. Paul/Department of Plannino and Economic Development, Lowertown St. Paul (St. Paul , ��innesota, 1978) � City of St. Paul/Department of Planning and Economic Development, Residential Improve- ment Strategy (St. Paul , P�innesota, 1977) City of St. Paul/Department of Plannin� and Economic Development, Tomorrow's Framework , from Today's Foundation, A Plan for powntown St. Paul (St. Paul , Minnesota, 1977) I City of St. Paul/Department of Planning and Economic Development, Transportation Control Plan (St. Paul , Minnesota, 1977) City of St. Paul/Department of Public Works , The Circulation of People in the St. Paul , Central Area (St. Paul , Minnesota, 1974) Cutler, Laurence Stephan and Cutler, Sherrie Stephens , Recycling Cities for People-- � The Urban Design Process , Cahner Books International , Inc. (Boston, Massachusetts , 1976) . � De Chiara, Joseph and Koppelman, Lee, Urban Planninc� and Desi�n Criteria, Van Norstrand Reinhold Company (New York, New York, 1975) , 65 CREDITS ■ ' The revised lan was roduced by the Downtown Community ! p P Development Council Planning Committee and city staff: DOWNTOLJN C MM N TY im i ger, airrian, owntown ommuni y ev . ounci � DEVELOPMENT COUNCIL John Mannillo, Chairman, Plannin� Cormiittee PLANNING COMMITTEE Wei �1ing Lu, Lowertown Redevelopment Corporation ' Laura Gallivan, Downtown Council Eva Peterson, Downtown Neighborhood Coalition Bill Buth, Buildina Owners and Manac►ers Association � Bob Van Hoef, Operation '85 Marlene Brand, Y4JCA Gary Grefenberg, Capitol Area Architectural and Ping. Bd. � . ADhIINISTRATION AND ames . e us, , irector, POLICY DIRECTION Pegc�y A. Reichert, Deputy Director, PED ' RESEARCH AND PLANNING Dorothy K. Schlesselr�an, Planner-in-Charqe � Patricia Coughlin, Student Intern ' , � � ' � � � � 66 � �'7854'7-�3 � " � r city of saint paul . � pianning commission resolution - f ile number 82-�� date 2-,2-82 � � : • _ _ WHEREAS, tF�e �wntown Comnunity Development Couacil , workinq Nith the Planning Division staff, has prepared a district plan for District 17, entit1ed tf�e Downtown Development Plan; and � ' WHEREAS, the Downtown Comnunity Development Council has adopted the Plan as a district- wide policy proposal and action plan; and . WHEREAS, the Planning Comnission f�as reviewed the Plan in light of citywide plans _ and comnents from ac�jacent districts, city department f�eads, Planning D�v.ision staff and individuals wf�o provided testimony at a public _hearing; and . � WHEREAS, the Downtown Development Plan was deve1oped as a portion of t6e Comprehensive Plan of the City of St. Paul ; and WHEREAS, the Planninc Comnission has determined that the Downtown Development Plan is consistent with all elements of tF�e Comprehensive Plan, except the District 7 Plan's recomnendations for tf�e capitol area; . NOW, THEREFORE, BE IT RESOLYED, tf�at the Planninq Comnission certifies the Downtown Develoament Plan and recomnends its adoption by the City Council as part of the - Comprehensive Plan; BE IT FURTHER RES�LVEn, that because the Downtown Development Plan conforn�s to the recentl,y-updated Compref�ensive Plan of tf�e Capitol Area Architectural and Planning Board, tF�e Planninq Comnission recoRmends that the District 7 Council sF�ould amend their district plan to conform to the Comprehensive Plan for tF�e capitol area; and BE IT FURTHER P.ESOLVED, that the Downtown Development Plan will replace the previously adopted Downtown Concept Plan; and . gE IT fURTHER RESOLVED, that the Planning Commission direc�s the Deputy Director for Planning _to transmit these recomnendations to the St. Paul City Council . � m��/� �/ McDonell � `�a'�(j � Armstead � in fav�or �6 - - agair�St- � � . ABSTAIN 1 (Tobler) ..`. . . �'�854`7-�3 , .,- t , . Addenda to the Downtown Development Plan 1 . Page 52, number 5, add the sentence "Uses in this area should be less intense tF�an in tf�e downtown core and, therefore, should exclude regional office and comnercial uses." 2. Page 26, number 7 sF�ould 6e replaced with the following paraqraphs: The downtown should maintain a healthy, equitable property tax structure. Traditionally, soecial assessments F�ave been used to pay for sidewalks, street maintenance, sewer installation, etc. Procedures for implementing these special assessments have been established. Careful consideration should be qiven to non-traditional development- oriented special assessments including, but not limited to, capital costs for parking ramp construction and annual operating expenses for public spaces. Tf�e city should develop and adopt policies and guidelines now for the future use of special assessments , to provide that affected property owners are involved at an early staqe in the discussion of any special assessment; F�ave a role to play in determining the scooe and potential benefit of any special assessment; and participate in establishing any special assessment formula. 3. Paae 38, the "vacant" label on the St. Paul Companies' parking area should be removed.