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278570 WHITE - CITY CLERK � �� PINK f FINANCE COUflC1I CANARY � DEPARTMENT G I T Y O F S A I N T ��U L �� BL�,4tE - MAYOR File N . nc 'l R l 'on Presented By Referred To � C mmittee: Date Out of Committee By Date WHEREAS, the Public Works Committee of the City Council of the City of St. Paul requested a planning study of possible access and development options for an area bounded by Jackson Street, Wheelock Parkway, Arlington Avenue and the Soo Line tracks; and WHEREAS, the Trout Brook/Hoyt-Abell Land Developmenf Study draft, prepared by Planning Divlsion staff, analyzed eight access and development options appropriate to the study are�,; and WHEREAS, the Trout Brook/Hoyt-Abell Land Development Study has been reviewed and endorsed by the District 6 Planning Council and their Housing and Land Use Committees; and WHEREAS, the St. Paul Plann�ng Coanmission has found and determined that the Trout Brook/Hoyt-Abe11 Land Development Study is in conformance with the St. Paul Comprehensive Plan; and 1'dHEREAS, the St. Paul Planning Commission has recommended that the Council of the City of St. Paul, (1) adopt the Trout Brook/Hoyt-AbeI1 Land Development Study as the framework for future land use decisions in the area, and (2) request the Department of Planning and Economic Development to prepare a specific and detailed analysis of planned unit developments and public street improvements together with a proposal fox a Redevelopment Plan to guide future city and Housing �, Redevelopment Authority actions; NOW, THEREFORE BE IT RESOLVED, that the Council of the City of St. Paul does hereby find and determine that the Trout Brook/Hoyt-Abell Land Development 5tu�yis consistent and in conformance with the City Comprehensive Plan, and does hereby concur in the recommendations of the St. Paul Planning Commission, and c"toes hereby adopt the study as the framework for future land use decisions in the area; and COUNCILMEN Yeas Nays Requestgd by Department of: Hunt Levine In Favor Maddox McMahon B snowalter - __ Against Y Tedesco Wilson Form Approv by ity Attorney � Adopted by Council: Date Certified Passed by Council Secretary BY sy —_ Approved by ;Vlavor: Date _ Approved y ayor for Submission to Councii BY - _ By WHITE - CITY CLERK PINK r FINANCE ��Q�� CANARY - DEPARTMENT COUflC1I t� BWE - MAYOR GITY OF SAINT PAUL File NO. � Council Resolution Presented By Referred To Committee: Date Out of Committee By Date BE IT FURTHER RESOLVED, that the De�artment of Planning F� Economic Development is hereby directed to prepare a £easibility analyszs study of �lanned unit developments and publa.c street improvements together with a proposal for a xedevelopment plan to guide future city and Housing F, Redevelopment Authority actions in conjunction with appropriate agencies and publ�c oxganizations. COUNCILMEN Yeas Nays Requestgd by De artment of: � Hunt Levine In Favor Maddox � McMahon B snoweiter __ Against Y Tedesco VViFsvrr APR i 3 1982 Folm aPP�o�ea c� a,t�o Y Adopted by Council: Date — Certified P� •s d by Council Secr BY By _ Approved by .Vl vor: Date A �982 Approved b a for Submission to Council BY - – - By - " . � PUBUSHE� APR 2 41�82 2'785'70 Minnesota District Council Assembiies of God 1315 Portland Avenue South/Minneapolis, Minnesota 55404/Phone (612)332-2409 HERMAN H. ROHDE Superintendent April 12, 1982 Mr. Albert Olson CITY COUNCIL City Hall Room 386 St. Paul ,. MN 55102 Dear Mr. Olson and Members of the City Council : ' The Jackson Street Assembly of God wishes to inform you of the irreversible harm which would be done to the church and those persons that this church ministers to in the Jackson Street - Hoyt Able and Trout Brook community. If the City adopts the proposed development of the Hoyt Able and Trout Brook proposals, this proposal would force the Jackson Street Assembly of God to relocate and would in our judgment create a spiritual void and vacuum in the community. The parent organization, the Minnesota District Council of the Assemblies of God, are opposed to the part of the proposal that would acquire the church property for development, but we are in favor of developing the area. In your consideration of the overall development, we would like you to consider the positive influence of a church in this corrmunity. The Assemblies of God church ministers to a cross cultural community and pre- sently have eight different groups worshipping in our congregation. We would enlist your help to keep the Jackson Street Assembly of God at its present location. Thank you for your consideration. Sincerely, ,._---r .e-?�nu�j •�' - Herman H. Rohde District Superintendent HHR/dks ,. .. ., . � CITY (3F+` ►�AIN'T PAUT� � . f UF�''ICE OF T8E CIZrY COIINCI7.. .' ��'785`70 ,; �,� � ...,,..�� ;_ '.,,..,.,.,.., r�.. � «�.s�t�:. ,; r. • - �- � t3ate : :�pril 7, 1982 ~'.. _ con� nn ��-T� � � � � a ��- � . � TO : Saint Paul City Council � - F R�1V{ � Committee o n PUBLIC WORKS . Ron Maddox , chairman, makes the following . report on C.F. � Ordinance ❑ Resalutian . C) Oth er . T t T LE : Consideration of the Trout Book/Hoyt-Abell La.nd � Development Study as approved by the Planning Commission. HEARING DATE: April 13, 1982 . CITY HAI_L SEVENTH FI.00R SAINT PAUL, MINNFSQTA 55102 . '�:;:.?=�:y • � �., . ' , ' ; , ,�, � , � , - ` � , , ' . ' Y � 1 : , . :lhbru�y ]b., 198� , Cbnnailman Ron 1�1�4dox • . , : , ; (�siro�sa, Pub].#.e_�ka��i�t� � � ' . � 7`Eh Fl;o�t�, City Hal1 ' , :. n..r c�s�s:,► �awc: ' � � , , . •. 9� Ci:ty '�s1 rir�rra8 '�c� t.b. 8�b]..ta`i�Ics\c�o�.i��..;tor : � • aomlti�l�r�iot4 a4d r�awlen�ods�luoD, tl� 'ti'o�nf�' He'c�c/iia,y►L�AD�ia.1 - , 7�md D��elo�at St.u�+ as ��r*d by tt» PL�tiug't�O■�i�slan. . , ' . Vir'i�' trtit3,y youra, . - . ' . � � �� - Alb�r'� S. OSaaa � � Citr�t C"i�Y � • ' " � _ � - ABO tla ' ',, ; . .� ': cc s Pu�blia Nbrts l�rpl, . . � P��puisg St�s3'!' _ , ' , � , , . . , � ; : �t � ; , , - ' �; . : , . ,, _ � , , .\ , - _ , , : . . '� :: , , � . 1 � � , , � . - i , . . . . . � . .. - � . . . .. � I - . . ' . � . . . . ' . � . . , . . . . � . .. . .. . L � ��_;�' CITY OF �AII\TT �PAUL p*,_ � �� OFFICE OF THE MAYOR ��v �� iiii'i iiii �a � �� t�� ` ' 347 C[TY HALL SAINT PAUL, htINNESOTA 55102 GEORGE LATIMER (612) 298-4323 M:4YOR • January 29, 1982 � . - Council President Ruby Hunt and P1embers of the St. Paul City Council Seventh Floor City Hall Saint Paul , Minnesota 55102 r Re: Transmittal of the Trout Brook/Hoyt-Abell Land Development Study � Dear Council President Hunt and Members of the City Council : On January 22, 1982, the Planning Commission approved the Trout Brook/ Hoyt-Abell Land Development Study. This approval by the Planning Commission represents their recommendation to the City Council to 1)� adopt the Trout Brook/Hoyt-Abell Land Development Study as the frame- work for future land use decisions in the area, and 2) request the Department of Planning and Ecor�omic Development to prepare a specific and detailed analysis of study options 7 and 8 together with a proposal for a redevelopment plan to guide future city and Housing and Re- development Authority actions . Planning staff has worked closely with the Public Works Department, the lJater Utility and the District 6 Planning Council to provide for � coordination, review and comment during the Study's formation. . Essentially, the study has deternined that mixed density Planned Developments (options 7 and 8) provide the best use for the site. This type of develo,pment will expand the City's tax base, provide part � of St. Paul 's need for affordable housing, and enhance the character � of the surrounding neighborhood. I am impressed with the coordination of efforts between city departments, the district council , and the Water Utility in the development of this study. I am pleased to transmit this study to you for your adoption, and for your contirivation of the analysis and redevelopment plan process. Sincerely, - �.�� l�`�'- �c��"j%1��? George L�'timer �\ Mayor GL:sb ��CC: Peggy Reichert � � . . . . city of s�aint paul � planning commission resolutian fiEe number 82-� . date Januarv 22, 1982 . : TROUT BROOK/HOYT-ABELL STUDY . 4lHEREAS, the Public Works Committee of the St. Paul City Council requested . a planning study of possible access and development options for an area . bounded by Jackson Street, 4Jheelock Parkway, Arlington Avenue and the Soo Line tracks; and • � WHEREAS, the Trout Brook/Hoyt-Abell Land Development Study draft, pre- � pared by Planning Division staff, analyzed eight access and development options appropriate to the study area; and . • 4lHEREAS, the Trout. Brook/Hoyt-Abell Land Development S�tud� has been re- • vietived and endorsed by the District 6 Planning Counci_f and their Housing and Land Use Committees; � � tdOW, THEREFORE, BE IT RESOLVED, that the St. Paul PTanning Commission find the Trout Brook/Hoyt-Abell Land Development Study in conformance with the � Comprehensive Plan; and - BE iT FURTHER RESOLV�D, that the St. Paul Planning Commission encourage the �Council of the City of St. Paul to 1 ) adopt the Trout 8rook/Hoyt- Abell Land Development Stud as the framework for f��ture land use decisions in the area, and 2 request the Department of Planning and Economic Development to prepare a specific and detailed analysis of study options 7 and 8 together with a proposal� for a redevelopment plan to Quide . � future city and Housing and Redevelopment Authority actions. �Q�� b� Huber S°��ad b,/ KadriP �� .��C 14 ; aC��Y � , �� s �� r '= { a e�" ,a sa ��+ ��z �� ! 4 � $ ��'� i . 3aa x, ., ; �.t 3"� " #; r.� 4 �� f , � ,� � �y g��w��w�c�y� �� fi��t� '�x. � F i A ��..r 3 '� �t� 3 1 Y ic i �1 �./ f ! tl4 o k { ' 0. r � �)fi�� 1k`.E,�'t! ! � � � � g � , � � i f�" �..v , �, �''y:� �n" � � � Y F,r. � � ;� ) T3�. 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J_ +y�, s ±�' �{ {`.'1'�' T{ #�' ,�p��, � H� .-af �, '�. p„ j. � s SY�.q � '�. .�a iV L 'i � t fit` k I 4 f'� 7$T ,yS �T .".a � t'',�Y'..c '�k,g,�+d�„3'ry[ rs� �. "�d'�`� � � Y f"��d3Fk ¢i' : � _.: -r M F �� psy�:,i'b !.� ��.� �',�+,� '�" '3,`.#' . �>�:�..i.��..�2.t�'{�.3'.��.,ta S`�`r.� Y�is:��'.. f. zj�� .r.�.f.d•S' . :.3.�`"�z...�fec�`a'x��..-�t� ._..rn�,.�a;�rr,:°�..�,�Su��k��,,. . , �,��.g?"�i:eo�'��'��'aY.:ia� . .. ' � TABLE OF CONTENTS 1 � I. INTRODUCTION 1 A. BACKGROUND 1 � II . PHYSICAL OESCRIPTION OF_THE STUDY AREA 5 A. ORIENTAIION 5 � 6. SOIL CHARACTERISTICS 5 UPLAN 5 � 2. LOWLAND 6 C. NATURAL BARRIERS TO DEVELOPMENT 6 ', D. EXISTING DEVELOPMENT 6 E. SUR�tOUNDING DEVELOPMENT 6 � F. INFRASTRUCTURE AND PUBLIC SERVICES 6 . CITY STREETS � , � 2. SEWER AND WATER 7 3. SUPPORTING SOCIAL SERVICES 8 � III . RESIDENTIAL DEVELOPMENT ALTERNATIVES 9 A. PUBLIC IMPROVEMENTS 9 OPTIONS , 2, 3 9 � 2. HOYT AVENUE OPENING OPTION 1 9 3. OPTION 2 11 4. OPTION 3 � 14 � B. PLANNED UNIT DEVELOPMENT 14 _ OPTIONS 4„ 5, 6, 7 14 2. PLANNEO UNIT DEVELOPMENT OPTION 4 15 � 3. PLANNED UNIT DEVELOPMENT OPTION 5 11 4. PLANNED UNIT DEVELOPMENT OPTION 6 17 5. PLANNED UNIT DEVELOPMENT OPTION 7 19 � 6. PLANNED UNIT DEVELOPMENT OPTION 8 19 IV. STAFF ANALYSIS AND RECOMMENDATION 27 � A. ANALYSIS 27 T PUBLIC STREET OPTIONS 27 � 2. PLANPJED DEVELOP�1EPdT 28 B. RECOMMENDATION 29 � V. CREDITS 30 � : , MAPS AND ILLUSTRATIONS � � FIGURE 1 SITE LOCATION � FIGURE 2 NEIGHBORHOOD AREA CONTEXT 3 � FIGURE 3 TROUT BROOK/HOYT-ABELL STUDY AREA 4 FIGURE 4 AVERAGE DAILY TRAFFIC COUNT fe FIGURE 5 PUBLIC IMPROVEMENT OPTION 1 FIGURE 6 PUBLIC IMPROVEMENT OPTION 2 12 � FIGUR E 7 PUBLIC IMPROVEMENT OPTION 3 13 FIGURE 8 PLANNED UNIT DEVELOPMENT OPTION 4 16 � FIGURE 9 PLANNEO UNIT DEVELOPMENT OPTION 5 18 FIGURE 10 PLANNED UNIT DEVELOPMENT OPTION 6 21 FIGURE 11 PLANNED UNIT DEVELOPMENT OPTION 7 22 � FIGURE 12 PLANNED UNIT DEVELOPMENT OPTION 8 23 FIGURE 13 ZONED DENSITY MATRIX 24 FIGURE 14 COST COMPARISON MATRIX 25 � FIGURE 15 TAX REVENUE PkOJECTIONS 26 � � � � � � � � � � ii � � . 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" . , ._� ��' ��u� . , . , , ... . ,.<... , ,u...., ,.. �''�� .'� '�.a;,., � � —�— � ` � Figure 3 Trout Brook/ Hoyt-Abell Study Area � .. . . : � �.� . � �� : � � z. , � . ,s..: � : ?; �: . � , � � Q � ._ . , .. .�,.g... � �I . �� r�il�si �I��I! 1��II��'II �� x�`.. �i• -:::':�, p � d,' � R-2 f � _ . . Single Family Residential 1 , �n �� RM-1 , : �� ; � , V.,, � Low Densi ty �; � q Multi-Family �= Residential � � �_ I-1 ,. ; ; � S Light Industrial �� . . S ��;t :�iT:'' . ,;�:. �� . - t . �,. � ♦ .� x: ��:{ i:""��,,� � . ... . :�� .. f � -4- � , orks Department, ub ic earing, anuary 30, 1980, p. 2. � � _2 � � � Ii. PHYS�CAL �ESCRI��i'lON OF THE STUDY AREA r , A. ORiENTATION � The study area is located approximately 2 mile west of I-35E and 22 miles north of downtown St. Paul. It consists of an area bounded on the north by Wheelock � Parkway, on the west by the Soo Line Railroad tracks, on the south by Arlington Avenue and on the east by Jackson Street. The general terrain can be described as sloping away from Wheelock Parkwa� and Jackson Street toward a Water Department � service road. Some slopes are steep ( 12-24�) but most are moderate (less than 10�) and are buildable. The steepest slopes form a northern and eastern rim in the study area along Jackson and Wheelock and provide natural land buffers - for surrounding neighborhoods. � Just west of the Water Department service road is a city owned ponding area which experiences seasonal and temporal changes in water level. This lowland � extends to the railroad tracks on the west and will be considered separately because of its inappropriateness for housing develupment and because of its value in the system of water ponding and purification. jOn the western boundary of the ponding area is the Soo Line tracks right-of- way. The tracks are currently used twice daily, one train to the north and another to the south. Use is not extensive and thus is unlikely to cause serious � disturbances to residents in the Trout �rook/Hoyt-Abell study area. Views of the city skyline from the high ground are to the south and southwest � across the ponding area. The south facing slopes also provide solar energy collecting potential to this site. Use of such energy features is highly encouraged by the Comprehensive Plan of the City of St. Paul for existing and future development. � B. SOII CHARACTERISTICS 1. UPLAND IThe soil type to the east of the Water Department service road is Chetek- Urban mixed with gravel deposits and fill. Thr� soil has several negative � properties requiring noting: a. The soil drains rapidly and, therefore, can slow revegetation on steeper � slopes; b. When exposed, this soil is subject to severe erosion; and c. The soil has poor sidewall stability requiring special precautions during excavation. � Despite these apparent drawbacks, the soil makes a very good base2for construction because of its low frost-action potential and good soil strength. � � 2 Inventory and Evaluation of Soils for Urban Redevelopment Moechnig, Howard J., District Conservationist, USDA, June 16, 1976, pp 7, 8. � _ � _ � i 1 2. LOWLAND � To the west of the Water Department service road is a wetland. Its Udorthent r soils provide weak ground support for structures and its wet substratum indicates poor drainage, high water tables and severe frost-action potential. � These conditions require that on-site inspections precede any construction activity. - C. NATURAL BARRIERS TO DEVELOPMENT � Construction in the sloping and wooded parts of the study area requires special precautions to improve land and stormwater management. Streets built over � steep slopes ignore the need to preserve developable land since such roads require extensive land cuts and fills. Site plans for building on slopes over - 12% should detail erosion control measures for sidewall excavations during � construction, and drainage and replanting after construction. The existing trees and ground cover help to slow the speed of runoff and should be preserved whenever practical. Landscaped depressions can be incorporated into the design of more intensely developed areas in order to slow stormwater runoff. � D. EXISTING DEVELOPMENT Existing structures and land within the study area are less varied than those � ir�nediately surrounding the site. Within the study area there are three concen- trations of houses. The first fronts the south side of Wheelock Parkway. A second fronts the west side of Jackson Street where the houses rest on the i upper ridge of the sloping land. A church and a residential home for retarded t adults are also located along Jackson Street. The third concentration of houses is in the interior and could be described as "characteristically rural". � E. SURROUNDING DEVELOPMENT Land use in the immediate impact area is widely varied. To the east is the � McDonough Housing development. McDonough provides housing f or approximately 2,100 people in its 585 units (844 adults, 1,252 children under age 18). Maximum allowable units per acre with the current RM-1 zoning is 16. 13 but densities � are less with the McDonough development. Single family residences are prevalent north of Wheelock Parkway. The Soo Line Railroad tracks, apartment buildings, and the Rice-Arlington recreation fields make up the western border. A Port � Authority Industrial Park (Terminal Warehouse, St. Paul Concrete) and the Rice Street Branch Post Office border on the south. F. INFRASTRUCTURE AND PUBLIC SERVICES , Before all costs of developing an area can be estimated, the infrastructure and present municipal service levels require investigation. Such f actors as � street capacity, sanitary and storm sewer capacities, the location and size of water mains, bus access, and park and recreational facilities help to determine the development capacity of the land. � � - 6 - � � . � 1� CITY STR EETS ' The city streets that border the study area are designed to carry vehicles from neighborhood streets to arterials. The Comprehensive Plan of St. � Paul designates the streets that border the study area as collectors. They are designed to carry vehicles from neighborhood streets to arterials. The daily average traffic counts are illustrated below. � Figure 4 � Study Area Average Daily Traffic Counts � 2875 � 4225 WHEELOCK PARKWAY 4600 0 � U :':STUDY��,AREA�::�:':�:::�:�::-: d w ti � � � ^ M .-a H , M ARLINGTON , 3550 2875 0 � � Traffic Signal � The carrying capacity of Arlington and Jackson are 15,000 ADT (average ' daily trips). The carrying capacity of Wheelock Parkway is 10,000 average daily trips. Therefore, Figure 4 indicates that the area's major streets can accorrmodate traffic generated by additional development. Installation of a traffic light at the intersection of Wheelock and Jackson would improve � traffic management and provide added safety for area residents. 2. SEWER AND WATER � Municipal sewer service is provided to the study area by a combined storm- sanitary system. The impact of added sanitary flow from new development � is quite small. Impacts of development are greater if stormwater is channeled from rooftops and streets into the sewerso Stormwater from the surrounding area is presently channeled into the Trout � Brook cornbined sewer system. This is cau�sing sewer backup problems in neighborhoods to the south and southwesto Ecologically sensitive site designs for new development will slow stormwater runoff until sewer separation � can be accomplished. � - 7 - : � � Eventually the sewers in the entire McDonough and Arlington/Wheelock neighborho d will be separated. The city owned ponding site in the study area is an � integral part of the separation process. If residential medium or high density development in the study area is permitted, there is a striking opportunity for coordinated improvement of the ponding site. � City water service is available to residential development by utilizing the three large water mains that lay beneath the streets bounding the study area. � l 3. SUPPORTING SOCIAL SERVICES Other factors affecting the development potential of the study area include � public transit, school system capacity and the availability of recreational opportunities. MTC bus service is provided along Jackson Street. This � is strictly a north-south route to downtown with connections to the east at Maryland. The St. Paul Public School System has indicated that they will be able to accommodate additional students housed in the study area. A recreation center near McDonough Homes and the Rice-Arlington playing fields serve the active recreational needs of area residents. Both f acilities are within Z mile from the study area. � � � � . � � � � � � - 8- � � . � III, RESIDEN�fIAL DEVELOPMENT ALTERNATIVES � . This study area examines two development processes. Options 1, 2 and 3 involve � the construction of public streets to provide access to the houses and property in the study area. Land acquisition by the city would be minimal. Future residential development would occur around the existing houses as the market allowed. Option 1 � is the Hoyt Avenue opening. Option 2 involves opening Idaho, Wanda, a portion of Hoyt and a portion of Abell. Option 3 adds sanitary sewer service to the homes along Abell by realigning Wanda and providing gradual sewer line grades. � Options 4, 5, 6, 7, and 8 discuss a variety of Planned Unit Development strategies. Option 4 explores single family, infill development along private streets. Option 5 � provides 2-4 unit, infil� development in a low density residential development. Option 6 incorporates the development of townhouses in the study area. Option 7 combines townhouses with a high-rise building in a mixed density residential develop- ment with 16.96 units of new housing per acre. Option 8 combines townhouses and � a high-rise building in a mixed density residential development with 24.01 units of new housing per acre. Examination of these alternatives will aid in decisions pertaining to the future use of the land in the study area. Page 14 lists the , advantages of Planned Unit Development. A. PUBLIC IMPROVEMENTS , 1. OPTIONS 1, 2, 3 The public improvement strategy is composed of three options. The parameters � that limit the options are: a. That street alignments fallow current city rights-of-way to the extent � possible; b. That new streets provide legal access to existing houses in the area; and c. That the private market would dictate the type and timing of development ' within the area. 2. HOYT NVENUE OPENING, OPTION 1 MThe opening of Hoyt would involve the construction of extensive supporting slopes, storm sewers, bituminous surface and curbing from Jackson Street � to Abell Street. Sanitary sewer was not included in the improvements. The street would serve two houses in the interior and six additional lots. Hssessments would be high and charged to the �mall numbe!� of landowners with abutting property_ � ' � r � _ g _ � � Figure 5 Public Improvement Option 1 � �� whee�ocK ParKway '�'{ G�.Idc7f1$�k!@=� , � ----- � ;, ,_- i \\:. `� ♦-�_ sTOw� �� 1\ o � -- SEWER � \�� ` Y �\ \ V A \�� / � L ��- �/ / ��t�� e. o ave. , �Ji .-- � � - ` � \ \ �� \`�\ � Y �� R � �J \� ,V ( ; � \ � � � ____- \\� C V \� r � �� > �� I -- � � , \\� �� /� ;' �:: \� �I �� i.. i: � ��\ � �� .. •• \�� , f' �- \ ✓ vaCated � � nebraska �,c. � l • � \ � � \ � � � � � \ � � � � � � � �\ � � �� \� \\ � �\ � �� .� � � � � \��i I — \\ � � �� t�7 � Construction Costs: $80,880 e. arlinqton ave. Resulting Development Capacity: � 62 Units (3.87 acres) - 10 - � � . � Since the street would directly access the long side of six undeveloped � properties the imnediate development potential would be limited to six lots. The construction of Wanda to the north and south of Hoyt would be required in order to access additional property, The resulting dead end � street configuration would severely limit circulation and landlock more land than the configurations in Options 2 and 3. Additionally, the cost of adding water and sewer service to Area A in the future would increase I the cost of Option 1 even higher. The current RM-1 zoning would permit 62 apartment units (capacity) on the 3.87 acres made available for development by this option. 1 Costs to construct Hoyt Avenue are: $80,880 (street and storm sewer). 3. OPTION 2 � In accessing the total uplands area, Option 2 is proceduraTly the simplest for the city to implement because it employs the use of existing rights- of-way and standard assessment practice. City land would be used for most I of the street construction. Private land would be condemned only to accommodate a one block 1ength of Nebraska Avenue, the curve at Nebraska and Wanda, and the cul-de-sac at the end of Abell. Sanitary sewer service would be � provided only to lots along Wanda. Residents around the cul-de-sac would continue to use septic systems to process thpir sewage. An expensive pump station would be required to provide sewer service above Abell. Option 3 ' provides sanitary service to this area at less cost than installing a pump station by varying the street alignment. Stormwater would be collected along Wanda and Hoyt and emptied immediately into the Trout Brook sewer system via the adjacent pond. This plan would provide �nunicipal services ' and legal access to 9. 1 acres of land in Are� A but would landlock some lots in the northwest corner. � Future construction could take a variety of forms due to the combined effects of assessments and the multiple large lot ownership pattern in the area. There would be pressure to develop the lots with high density residential � uses and/or subdivide lots in order to make the resulting housing units marketable. These pressures together with the current RM-1 zoning would encourage incremental d��elopment and mixed densities over time. RM-1 zoning would allow 146 apartment units (capacity) on the 9.1 acres made � available for development by this option. �osts to construct city improvements are: ' $271,700 (Street and storm sewer) $ 59 400 (Sanitary sewerj $3� , , � ! - 11 - . � Figure 6 Public Improvement Option 2 � —� —,. ----�._—�� - — — : .��.�� 1 __;�_� �_� / � �; � I whee�ocK ��kW�� e.id�h� .-� � t �� j.�� -�,�-= --�____---��",r _ - � � �—� � _ � ? - ' � - ��—' � ' t , ^ ; �;`�=__ ; � : i \\\ �.—, ' �—i i �'�— �� — * �—� � �i� STORM � �� \ 1 � . o , -�'� SEWER �� \� -- =- : `�� ;-; � �� . . i � ; �� : =��, a,,,,,,,,�„ SAN ITARY �� ; 2 ��`•� ; _��—, i � .. SEWER � •��- . ---•----7 _ _ � � , 1 �acateJ � Q .�'lOyt e7VC�. � � \ \\ � l ��i . , � � �� 3 \ � � �� —� � � �\ � �� , � �•� 'D ,-, j « �� .___,�� , � � �Q _'� _—� Q J � \ \\ �\ �\ :�.�� . � ' .\�\ . ,`__y �,. , \� � * � I �\ � � � � :°: 6 7 � � : I � •• �' ' d ' ' --� � vaC�ted nebraska�rue.�a� ' � �-� � . �� ;Q' �— � . 9 8 � '� ��^�� , ,� LJ . � : +- : • � �� , L Y •:�•� h i � '�'�\b��-7 � � � � Y 4J �\s�` `� :� �'. � Q� �1��( j -"�_ i � � �, ��'��,j t9. � � � �' � � Construction Costs: � �—� --�� `�� y271 ,700 (Street and Storm Sewer) ' ; 5 59,400 (Partial Sjnitary Sewer) rJ � � , S331,100 Total � — - - — - � � ---- -- - --- Resuli:in Develo ment �a acit e. arlin�ton ave 9 P P y� - - - ------- --- -� �- 146 Units (9.1 acres) � - 12 - � : Figure 7 � Public Improvement Option 3 1 �� `� . � arkwav �\i e.If�e7f'1(� —— WheC1oGK P I i . � 1 Q . : I -___- 1 �� : STORM �� . �---H— �� SEWER �� ' v --- n fl '= �� 7 ��- � u \\� \ '--- i i ; �\�� a.......�.... SANITARY � _ SEWER ; 2 �� y . � ,."`_ � i ' � ��t�� `�'� � . . ° e.hoyt ave_ � � - J � \ I • /' � 1� � \��' ' \ i \\�� \ �� \ � '7 \� i ' y \� : -- -- f~'J �\. � �Q f � • \ � � �\ �i V \� • � �� : • �� \� � � � '�. \�� i �i -- �� \� �� I �� \� i I �I ?�.: .. � ��.j II ' " � r' i , �.� vacatecl � r• � �Q nebr� .�e�. r " , ,: , , :. �, � :, � � :� � � \\ \ •• � � � . � �� t � �\ �� ''�1 \ • � ; ' I \\ • ` �� +�+ `� ;`•�� • L \��•. � �\ . Construction Costs: , _ � $325,270 (Street an�� Storm Sewer) � $ 80,740 (Sanitary Sewer) ' $406,010 Total � � Resulting Development Capacity: e. arhn�ton ave. 145 Units (9.0 acres) ---_ . �— � : � � 4. OPTION 3 Option 3 consists of a public street and sewer alignment that would provide , sanitary sewer service to the Abell Street cul-de-sac. As in Option 2, land would have to be acquired to construct one block of Nebraska Avenue and to accommodate the realignment of Wanda. Replatting would be necessary. If the accompanying land condemnation were to be contested, street constructi delays could lead to higher land acquisition costs and assessments. The change in street alignment and the addition of sanitary sewer are the substant� differences between public improvement Options 2 and 3. New development with this option is also limited to lots that front city streets. Since this plan landlocks the same lots as in Option 2, the amount � of land available for development is about the same (9 acres). As in Option 2 the pressures to develop high density housing and to subdivide lots would be present because of the combined effects of assessments and the multiple � large lot ownership pattern in the area. The current RM-1 zoning would allow 145 apartment units (capacity) on the 9.0 acres made available for development by this option. � Costs to construct city improvements are: $325,270 (Street and storm sewer) � $ 8$�7b� (Sanitary sewer) � B. PLANNED UNIT DEVELOPMENT ' 1. OPTIONS 4, 5, 6, 7, 8 , The second form of development examined in th�s study involves the use of the Planned Unit Development (PUD). The Zoning Ordinance describes a Planned Unit Development as a process that "provides a desirable environment� and "shall be harmonious to the general surrounding uses permitting flexibili in overall development while insuring adequate safeguards and3standards for public health, safety, convenience, and general welf are". The PUD , process encourages citizen involvement during the formation of development guidelines and site specifications. A planned development that uses design ideas from individuals, city departments, the neighborhood, developer and Planning Commission, can take advantage of the natural features of the � land in a way that will benefit both the neigborhood and the city. While there are many types of PUD's, the ones explored in this study will ■ be strictly residential . Al1 five PUD options require that the city or ` private developer acquire a considerable amount of land for the purposes of resale in order to initiate the coordinated development of the land , in the study area. There are advantages for both the developer and the citizens involved if a PUD process is used. These include: � 3 Zoning Ordinance, City of St. Paul, adopted August 28, 1975, p. 48. , ' 14 - ` � ' � . A variety of housing types can be planned and constructed in a coordinated � manner. . There exists a greater opportunity for innovative architectwre and ' site design without the restrictions of the standard grid pattern, zoning ordinance regulations and wide streets. This opportunity can facilitate a high quality development, at lesser cost. � . Clustering of structures can increase the amount of common space and recreation area. Pooled financiai resources of the residents can be used to provide tennis cdurts, swimming pools and tot lots. � . With flexible standards for streets, natural land features can be preserved, residential privacy enhanced and vehicle speeds reduced. . Safety of pedestrian movement can be increased through the development I of separate pedestrian walkways. . Underground utility lines improve the appearance of development and are less vulnerable to storms. When placed beneath sidewalks or boulevards, � . streets need not be torn apart to make necessary repairs. Stormwater retention and soil management can be applied to the entire site rather than during incremental development. � . The neighborhood plays a greater role in the Planned Unit Development process than in the conventional form of private land development. The site review process and public hearings provide for citizen involvement. � 2. PLANNED UNIT DEVELOPMENT OPTION 4 � Option 4 consists of a Planned Unit Development of single family infill housing along private streets. The streets would follow the contour of the land and would serve numerous housing nodes (see Figure 8). These � private streets could be narrower than public streets because they serve only the traffic generated internally by the residents. Less rigorous construction standards for the streets provide more land for housing and amenities. Overall development costs would be less than in a plan which � included wider public streets. These savings could be used to fund construction of communal open space, ponds, landscaping and other on-site amenities. ' Development costs per unit include: land, $11,450; site improvements (grading, streets, utilities, etc. ), $18,800; building materials and labor, $60,000; engineering and design, $4,200; de�velopment contingency, $2,500; and profit, � $14,500. A $11, 150 inflation cost reflects expenses associated with a one year construction delay. Fifty new houses averaging $122,600 each and private streets cnuld be built on 14.26 acres of land. See Figure 14 for cost comparisons between Options 4-8. � Because this option considers adding only single family houses, the density nf the development would be less than than of the neighborhood to the north. ' With this option relocation of residents are limited. Costs to the city for municipal services would be minimal since snow plowing and upkeep of the new streets would be privately managed and funded through a homeowners associationo 1=ire and Police protection woul� be provided by area units. � r � _ �� - : � Figure 8 Planned Unit Development Option 4 � Single Family Scheme ' ' � � � , _� � �:,; � �� Develo�ment Capacity: 50 Single Family Units (New Construction)� Acres Developed: 12.9 acres Units Per Acre: , 3.87 Units Development Costs Per Unit: , Land $ 11,450 Site Improvements $ 18,800 � Bldg. & Labor $ 60,000 Engr. & Design $ 4,200 ' Contingency $ 2,500 Profit $ 14,500 � Inflation $ 11 ,150 � � Total Cost Per Unit 12 ,600 � 1 - 16 - � , : � 3. PLANNED UNIT DEVELOPMENT OPTION 5 � Opiiori 5 consists of a Planr�ed Unit Development of existing single family houses, duplexes, and fourplexes. As in Option 4, this option would limit ur exclude the need to relocate residents from the development area. Fully � developed, this option could provide 100 new housing units built on approximately 14 acres of land within the study area. Access to this development can be gained from 2 or 3 points along Jackson ' Street. Private streets would be built to follow the contour of the land and serve numerous housing nodes (see Figure 9). As in the other Planned Developments, the private streets could be narrower than public streets Ibecause they serve only the traffic generated internally by the residents. Development costs per unit include: land, $5,750; site improvements, $7,600; , building material and labor, $55,000; engineering and design, $3,300; development contingency, $2,000; and pr�ofit, $11,000. A $8,500 inflation cost would - reflect expenses incurred with one year construction delay. The total � cost per unit is estimated at $93,150. Municipal costs for Planned Developments Options 4, 5, 6, 7, 8 may be less than Options 1,2 and 3 because snow plowing and upkeep of the new streets could be privately managed with a Planned Development and paid for through a homeowners association. I4. PLANNED UNIT DEVELOPMENT OPTION 6 ' Option 6 consists of a Planned Unit Development of approximately 165 townhouses. All of the land in Area A, except for the lots along Wheelock Parkway, would be acquired by the city and existing structures removed. This is � done in order to f acilitate continuity of design for the entire residential development. Preserving the existing slopes, vegetation and solar orientations would provide a wealth of natural amenities for the new residents. Additionally, site design which includes common spaces for passive recreation permits I somewhat higher densities than would conventional grid pattern lots and streets. The townhouses would be clustered along narrower, private roads similar to those in Option 4 (see Figure 10). ` Access to the area could easily be gained from several points along Jackson and from one point along Wheelock Parkway. Because Wheelock is a Parkway and there is �ess traffic on Jackson access for any new development of � Area A should be from Jackson Street. Development costs per unit include: land, $12,100; site improvements, , $5,100; building materials and labor, $48,000; engineering and design, $2,800; development con�ingency, $1 ,700; and profit, $10,500. A $7,800 inflation cost would reflect expenses incurred with one year construction i delay. Approximately 165 townhouses averaging $88,000 each could be built on 20.3 acres. � ' � - 17 - . ' � Figure 9 Planned Unit Development Option 5 � ,..- � 2-4 Unit Scheme ' fIJUI �� hw: �' � b:. IIM I z , 3 �,^,- ��s' 5 k. �M 8 �� pll� �g' I�� - � ..�A � � ;� l ("y .4` � ' . � �� . � � Development Capacity: 100 duplex and 4-plex units � � � � (new construction) � Acres Developed: 12.9 Acres �.�R Units Per Acre: 7.75 Units ' .�.� r � Development Costs Per Unit: Land $ 5,750 Site Improvements $ 7,600 � Bldq. & Labor $55,000 Engr. & Design $ 3,300 Contingency $ 2,000 Profit $11 ,000 ' �" ' Inflation $ 8,500 ��"�� Total Cost Per Unit 93,150 - 18 - � 1 �. 1 5. PLANNED UNIT DEVELOPMENT OPTION 7 ' Option 7 consists of a mixed density residential Planned Unit Development that would add an additional 346 new housing units to the city. All of � the land in Area A except for the lots along Wheelock Parkway would be acquired by the city and existing structures removed. Approximately 130 units of townhouses could be built below the steep slopes. A high-rise with 12 stories could be built into the east slope using part of the drop � in elevation for a two level parking garage. The parking areas for the high-rise could have a separate access to Jackson Street. 1 Private streets would serve the interior. This is an important access feature since the high-rise demands a more carefully designed circulation pattern to avoid traffic conflicts. The use of separate roads in the interior , and to the high-rise effectively separates the traffic generated by each. The character of the townhouses in this option would be similar to that of Option 5 since use nf communal open space and the contour of the land � would continue to be major design features. Orientation of the townhouses would be toward the pond and generally away f rom the high-rise. � Development costs per unit include: land, $5,250; site improvements, $2,800; building materials and labor, $49,000; engineering and design, $3,100; development contingency, $1,600; and profit, $9,200. A $6,500 inflation cost reflects expenses incurred with one year construction delay. The , total cost per unit is estimated at $77,500. The per unit cost of this option is compatible with average market values of houses in the surrounding area. � 6. PLANNED UNIT DEVELOPMENT OPTION 8 � Option 8 consists of a mixed density Planned Unit Development that would add an additional 490 new housing units to St. Paul on the 20 acre site. Approximately 130 units of townhouses would compliment a 20 story high- rise building. � � The mixed density Planned Developments (Options 7 and 8) utilize site planning and design to minimize neighborhood hardships such as increased traffic. , A separate road system for the high-rise building and townhouses separates vehicles generated by each, and minimizes traffic congestion. Since the higher density option would produce a higher tax base, an opportunity � for accompanying development will be examined here. As was mentioned earlier, the city owns a ponding site within the study area boundaries. Presently, the pond has limited usefulness in slowing the entrance of stormwater into ' the combined sewer system. The pond area also functions as a wildlife refuge. Use of the lowlands by the new residents in the study area would increase the amount of open space available fr�r passive recreation. When , the lowland i5 considered part of the PUD, the ratio of open space to housing units increases by a factor of two. Therefore, an increase in density of new development as proposed in Option 8 could be justified. � � - 19 - � � � From a community design perspective, capital improvements in the lowlands (e.g. , pond deepening and construction of access paths and bridges) should � be concurrent with and compliment any high density residential development. The ponding area improvements will not only benefit the higher density population to the east that would use the new park and recreation opportuniti� but also the surrounding neighborhoods. Improving the pond area could be the first step in the eventual separation of storm and sanitary sewers for the entire district. Development costs per unit include: land, $3,750; site improvements, $2,000; ' building materials and labor, $48,000; engineering and design, $3,000; development contingency, $1,600; and profit, $8,750. A $6,300 inflation � cost reflects expenses incurred with one year construction delay. The total cost per unit is estimated at $73,400. The per unit cost of this option is compatible with average market values of houses in the surrounding � area. ' i 1 1 � 1 1 t 1 1 1 _ 2� _ � � Figure 10 � Planned Unit Development Option 6 Townhouse Scheme � �. � � -r�-� ' �; ::;. � � ` � �� a � � � � a �k':: ':i,�. F � �' �,t Sa> , �� : k � E�� S� :_. , ' , 4: � £ >i a x Development Capacity: � � 165 Townhouse Units � ;�, f ; (New Construction) I „ � �a=� Acres Developed: 20.3 Acres �; _< � �:. ` Units Per Acre: 8.12 Units � ! Development Costs Per Unit: � Land �12,100 Site Improvements $ 5,100 Bldg. & Labor $48,000 1 Engr. & Design $ 2,800 Contingency $ 1 ,700 A:;,.� � ,�,. Profit �10,500 . , � ' � Inflation $ 7,800 � M��.;:�. . : .�. . . :: Tota Cost Per Unit ,000 � � - 21 - � � � Figure 11 Pianned Unit Development Option 7 � �� ..,_ __ Mixed-Use Scheme(16.96 Units per Acre) is`y` :� ``'�i T� � �� a. 1'„� , ';•C � ��.. � ' 4 i . � �ay s�t R�< �.5�. ��,. h�. , �. � ��2 � F � :� Ag "�: £ � , 1 y � � i ; � �am � ��i. s � �� t � = Development Capacity: ' �. 130 Townhouse Units 216 Hi hrise Units 34 Total Units New Const.) � ' ' ��... Acres Developed: 20.4 Acres ; Units Per Acre: 16.96 Units ��,:: � '' Development Costs Per Unit: Land $ 5,250 Site Improvements $ 2,800 Bldg. & Labor $49,000 � Engr. & Design � 3,100 � , Contingency $ 1 ,600 � " � = Profit $ 9,250 , � Inflation $ 6,500 , z . ��u_�.: �.� ..:� ' _ ., .. ... > .. Tota Cost Per Uni t ,500 � , - 22 - , � '. . Figure 12 � Planned Unit Development Option 8 Mixed-Use Scheme(24.01 Units per Acre) 1 :.. �, �< �� . , .� , . . : ,. s .. z. 1 � 1 =�: . � .. 1 - � 1 ' = f, , � � � ., f �i,.. ,,. a : If � E � II' .. a�r f ;i I �'. f . � � � � , , Development Capacity: 130 Townhouse Units 360 Hi hrise Units 490 Tota Units New Construction) ' � �� , fID1 � Acres Developed: 20.4 Acres � � ��. P. ' Units Per Acre: 24.01 � > Development Costs Per Unit: Land $ 3,750 1 Site Improvements $ 2,000 Bldg. & Labor $48,000 Engr. & Design $ 3,000 Contingency $ 1 ,600 , Profit $ 8,750 Inflation $ 6,300 > � � Total Cost Per Unit 73, 0 � , - 23 - , , � FIGURE 13 ZONED DENSITY MATRIX AMOUNT POTENTIAL DEVELOPMENT � POTENTIAL OF LAND # UNITS COST ZONING # UNITS AFFECTED PER ACRE PER UNIT REQUIRED � OPTION 1 • 62 3.87 acres 16. 13 NA RM-1 OPTION 2 146 9. 1 acres 16. 13 NA RM-1 , OPTION 3 145 9.0 acres 16. 13 NA RM-1 OPTION 4 50 12.9 acres 3.87 $122,600 PD � OPTION 5 100 12.9 acres 7.75 $ 93,150 PD ' OPTION 6 165 20.3 acres 8.12 $ 88,000 PD OPTION 7 346 20.4 acres 16.96 $ 77,500 PD , OPTION 8 490 20.4 acres 24.01 $ 73,400 PD � , , _ , , ' ' ' � , _ 24_ � _�Z_ � 1 1 t (�7 � H a ►3 � H oH oH � � O � O N O � O C O � � � � 7 � � z �. z r W � M• �1 Y-0� F� U1 R �P n1 „9 R1 n7 fA � NV N v µ �O �C1 �G v G G C N N N N r � ['� , a A �p �p � W N� N {J� 1-' K 7 m c� '9 ca � uNi o uJi u'+ 7 n � . � � � � O O O O O � �O • A ,� A � � 111 N tA W M N Vl N y 1-� �t7 ff ff F+ W � � • � N N tn J m O O ►^^ � � 7 M M O O O O O W � � � A A O m �J K A m � � � n r�u O � 7 m � CAD tNi� O �G O N A �7 a °' O O O O O q R K A W � �+- 7 O O O O O 7 � (I v ' w O � � w H �, K a a � � 5 � ° � a ,� � W g „ � � M ?' � w w tya �y.r a n� 7e � n v w C � m � A o o O o O m � O t��' � o n � o 0 0 0 0 � µ � m y � a ,� S � ' v v � 61 7 P F� � � � R L+1 '�C O H A (�j N N N N N ^ 7 � R r r w �* Y N N � Y• � (A (+� � O O O O O 1p - rj' O O O � ' '9 µ :7 � � Q. 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Each option outlines how many affordable housing units are created; what the impact on the City's tax base may be;and how the development relates to the neighborhood. , Access and future development can be provided in two distinct ways: (1 ) by constructing public streets (Options 1-3) ; or (2) by con- � structing a Planned Development (Options 4-8) . The traditional approach is to construct public streets along established rights- of-way as discussed in Options 1 , 2, and 3. While this approach ' is the most expedient and involves little financial support by the City, it may be accompanied by high assessment costs, subdivision and incremental development. � The Planned Development approach, as discussed in Options 4-8, is rapidly emerging as an alternative means for development of resi- dential areas. Its basic characteristics are: (1 ) the cluster- , ing of housing to preserve and protect natural amenities; (2) the provision of large areas of usable open space; (3) the reduction of development costs ;and,(4) the maintenance of moderate densities within the planned residential district. ' 1 . Public Street Options � Constructing public street Option 1 would provide access to two houses and six lots. Opportunity for development is limited to 62 apartment units of infill housing on 3.87 acres of land. � The total cost to construct Hoyt from Jackson to Abell Street would be $80,880. A limited number of property owners would benefit from Option 1 and these few owners would be required to pay all assessment costs . , Option 2, which involves constructing portions of East Idaho, Wanda, Hoyt, and Nebraska Streets , opens more land to develop- ' ment than does Option 1 . Maximum development opportunity in Option 2 is limited to 146 apartment units of infill 'nousing on 9.1 acres of land. Grading, paving, and providing sanitary sewer improvements would cost an estimated $331 ,000. Sanitary � sewer would not be provided to lots along Abell Street in Option 2. � Option 3 is a variation af Option 2 that realigns the Wanda Street right-of-way so that sanitary sewer service can be provided to lots abutting Abell Street. Maximum develop- � ment opportunity in Option 3 is limited to 145 apartment units of infill housing on nine acres of the site. Grading, paving, and providing sanitary sewer improvements would cost an estimated $406,010. , � -27- , ' Al1 three public street options would carry certain � "social costs": 1 . Less opportunity for affordable housing units is created than through moderate density Planned � Developments. 2. Considerably less tax revenue is generated through , moderate density Planned Development as is illustrated by Figure 15 Tax Revenue Projections) . 3. Incremental development is promoted at the expense of � the neighborhood character of the area. 2. Planned Development Options � . Planned Development Options 4-6 consist of low density developments ranging i� density from 3.87 to 8.12 units per � acre. The high cost of land and site improvements associated with low density development drives up total unit costs to $88,000-$122,600 per residence. Staff finds that per unit costs in Options 4, 5 and 6 exceed the sales market for the , area. Marketability of "high bracket" housing units are negatively affected by nearby public housing and industrial land uses. � Options 6 through 8 require that as many as 35 area residents be relocated. Obviously these residents have a keen interest � in all deliberations affecting the future development of the area. Proceeding with clearance activities requires current residents to give up their "country acres" in the heart of �he City. These residents may be less than anxious to move so � that the land can be better utilized for somebody else's benefit. Every effort to relocate these current residents in the neighborhood or the Planned Development should be � pursued. Option 7 consists of a low to moderate density Planned Development of 346 new housing units with a market value of , $77,500 per unit. Option 8 consists of a moderate density Planned Development of 490 new housing units with a market value of $73,400 per unit. Staff finds that in both Options � 7 and 8 average unit costs are comparable with average market values of the surrounding area. Both Planned Develop- ment O�tions 7 and 8 provide striking o�portunities to � coordinate the development in the area by completing construction over a short period of time and availing the developer economies of scale. The developer must, however, assume a large capital investment and proceed wrth public hearings on the Plan before � construction is undertaken. ' -28- ! ' , In summary, the surrounding area will benefit from a high quality Planned Developr�ent. The market values and des�irability of surro�nding properties should increase with 1 ` a Planned Development. Conversely, incremental dev�elopment does little to enhance neighborhood character and could impair property values. ' All evidence suggests that Options 7 and 8 provide the best opportunity to utilize the site at its highest and best use, � expand the City's tax base, provide part of St. Paul 's need for affordable housing, and enhance the character of the surrounding neighborhood. , B. RECOMM�NDATION Staff recommends that a project feasibility analysis of mixed � density options 7 and 8 be undertaken. This analysis should include: a discussion of the Planned Development �one concept as it applies to the specific project area; an indication of � the anticipated level of developer interest; further refinement of development costs; and finally, a recommendation on whether proceeding with either option 7 or 8 :� warranted. E 1 t 1 1 i 1 i ! i ! tl 29- � � V. CREDI7S t City Council Ron Maddox, Chairman � Public Works George McMahon Committee Victor Tedesco � Planninc� Thomas P. FitzGibbons, Jr. , Chairman , Corrmission Liz Anderson Nelsene Karns Clark Armstead David Lanegran Ralph Brown Joseph Levy James Bryan David G. McDonell ' Carolyn Cochrane Joseph Pangel Sam G rais John Schmidt Rev. Glen Hanggi Gayle Summers � Sister Alberta Huber Janabelle Taylor David Hyduke Adolph T. Tobler Richard Kadrie Robert Van Hoef � Ac�ninistration James J. Bellus, A.I.C.P. , Director and Depa rtment of Planning and Econ anic Development , Policy Peqgy A. Reichert, Deputy Director, Planning Division Direction Department of Planning and Economic Development James Zdon, Principal Planner, Neighborhood Section, ' Planning Division Research Fred S. Haider, Planner-in-charge � and Mark Flinner, Intern, Mankato State University Planning Rick Beeson, Project Manager, Housing Division Dan Brev�er, Architect, Development Division � The District 6 Housing Committee and District 6 � Land Use Task Force deserve special credit for ' their review, input, and support of this study. � , -30- � � � � TABLE OF CONTENTS � � I. INTRODUCTION 1 A. BACKGROUND 1 � II . PHYSICAL DESCRIPTION OF THE STUDY AREA 5 A. ORIENTA�ION 5 � B. SOIL CHARACTERISTICS 5 UPLAN 5 � 2. LOWLAND 6 C. NATi1RAL BARRIERS TO DEVELOPMENT 6 �, D. EXISTING DEVELOPMENT 6 E. SUR�OUNDING DEVELOPMENT 6 � F. INFRASTRUCTURE AND PUBLIC SERVICES 6 CITY STREETS � 1 2. SEWER AND WATER 7 3. SUPPORTING SOCIAL SERVICES 8 III . RESIDENTIAL DEVELOPMENT ALTERNATIVES 9 � M T 9 A. PUBLIC IMPROVE EN S OPTIONS , 2, 3 9 � 2. HOYT AVENUE OPENING OPTION 1 9 3. OPTION 2 11 4. OPTION 3 14 � B. PLANNED UNIT DEVELOPMENT 14 OPTIONS 4„ 5, 6, 7 14 2. PLANNED UNIT DEVELOPMENT OPTION 4 15 � 3. PLANNED UNIT DEVELOPMENT OPTION 5 17 4. PLANNED UNIT DEVELOPMENT OPTION 6 17 5. PLANNED UNIT DEVELOPMENT OPTION 7 19 � 6. PLANNED UNIT DEVELOPMENT OPTION 8 19 IV. STAFF ANALYSIS AND RECOMMENDATION 27 � A. ANALYSIS 27 �T. PUBLIC STREET OPTIONS 27 � 2. PLANPJED DEVELOPt1EPJT 28 B. RECOMMENDATION 29 � V. CREDITS 30 i � MAPS AND ILLUSTRATIONS � � FIGURE 1 SITE LOCATION � FIGURE 2 NEIGHBORHOOD AREA CONTEXT 3 � FIGURE 3 TROUT BROOK/HOYT-ABELL STUOY AREA 4 FIGURE 4 AVERAGE DAILY TRAFFIC COUNT � FIGURE 5 PUBLIC IMPROVEMENT OPTION 1 f0 FIGURE 6 PUBLIC IMPROVEMENT OPTI 12 � ON 2 13 FIGURE 7 PUBLIC IMPROVEMENT OPTION 3 16 FIGURE 8 PLANNED UNIT DEVELOPMENT OPTION 4 18 � FIGURE 9 PLANNED UNIT DEVELOPMENT OPTION 5 21 FIGURE 10 PLANNED UNIT DEVELOPMENT OPTION 6 FIGURE 11 PLANNED UNIT DEVELOPMENT OPTION 7 22 � FIGURE 12 PLANNED UNIT DEVELOPMENT OPTION 8 23 FIGURE 13 ZONED DENSITY MATRIX 24 � FIGURE 14 COST COMPARISON MATRIX 25 � FIGURE 15 TAX REVENUE PkOJECTIONS 26 � � � � � � � � � � ii � � � �� Figure 1 �� Site Location � �"�.r� ::: �� r'�� ` � �� : x �� zt.�, . :. : .: ; ;. . .. �� ; � . : <a. � ,.:; . ', � � ��.. � � �'�:� .x.• 5.�: ��.x:., .. � v:.. :N �. ' �. �a e � �� £ ��E �`�.,�� : �� . �� -g�a � F' i'x �r �. 3. � .. � ,��+"s�a �� 'F�"�`Y�.� g.� . l � x . 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Zf�' 'M {��i�� ` `II•' �. ; Z C Y°� , � r� 2� R � +� . ` �:� '� � u u.��, .�x�e: ,�a �,�� : ��`�eeY��< � �'��'.an,F"' �¢� „ £ ��'' ,F„�y F. ��°'`y�_i �`'��.�,�.��ei$� 5��t�� „.x'�E�: � �F� � ; � 3; �� ` :'�� `. ��e�� r�� a �`��'�.�� ^z��.��.{�$�a � � ,�� '�`� ��'�` �; �`'" �'� a ��': ��' � ? � � s "� �x��a � ��r � s � � , . ,� ; �N _, � ^� � a�*.` ` � �,`' ; . F ' �z,�k ..Jn° � ��k. A �`��r � � �� ,. . � a. .. a . -�` .�a ��a� �' ., ' . . ..; . . ' : k �`cr : �.� uN'�..:' . .3,.,, �.�.. .....:. .,... .. .... . � �.:p .a.�j`Sn� ' ' � j _,_ � � I. INTRODUCTION � The Trout Brook/Hoyt-Abell Land Development Study was initiated by the City Council to seek ways of providing access to houses and lots south of Wheelock Parkway and � west of Jackson Street. The study investi�gates �eight possible access and develop- ment strategies. The first three examine options for public street openings and the anticipated development that would occur with each option. The final four � examine Planned Unit Developments that provide access to the area and a variety of housing opportunities. A. BACKGROUND � There are four houses and a mobile home in the study area that lack legal access. They are largely hidden from the surrounding parts of St. Paul by hills and trees. Current access is provided to these houses via a Water Department service � road built on a private easement. The Water Department is not willing to pave the road because repairing the water mains that lie beneath it would be more � difficult and costly. The owner of the house located at 45 East Hoyt Avenue had attempted to sell their house. After securing a prospective buyer, mortgaging arrangements were � sought. Request for conventional, VA and FHA financing were denied by lending institutions because the house had no legally established public access. A petition for the construction of Hoyt Avenue was submitted by the residents in the immediate area and an engineering report was made following the petition's advised road specifications. � The Public Works Department has determined that construction costs for Hoyt Avenue ��vould be relatively high. More,over, the steep grade along Hoyt would require extensive filling which would cause long slopes along the easement. � Estimated costs in January 1980 totalled $67,400 for curbing, bituminous street surf ace, drainage and slope construction. They further pointed out that the road would access only two of four existing houses and the long sides of a few additional lots. The total assessment of $57,800 (estimated in January 1980) would be distributed among eight property owners. The Public Works Departme recommended deferral of the improvements until results of this Planning Study are known. The study, according to the Public Works Department, "should provide � long-term guidance for more coordinated a�d integrated development of this large parcel of rough, undeveloped land." � f n ineerin Recommendations to the Public Works Cor�nittee), Public � 1 Summar o E � orks Department, ub ic Hearing, anuary 30, 1980, p. 2. � � -2- i � � Ii. PHYS�CAL i�ESCRINiION OF THE STUDY AREA 1 � A. ORIENTATION ^ ^r' _ The studv area is lncatP� annrnvim�tn7.. L m;�.. _y -r = � Figure 2 � Neighborhood Area Context Map � ARP ►F� R ar� ��rns- -- _ ' •:�.�: �:�t�: ::1;:., <;;%i�:�>:•>�>':>:2�:: : - -- i�ix��::':�i:�`i'ii�:�:'�:2«`�::;;.,:�:: ;•�::-�' ..... ..:.:.;.:�:..:::..... .. ... . ... i�:'t2: . p �.. - -- ,:.4::�:>:�?>:t;•>:�>:�»:..,.;t; _ ::.�. �. ... .....�... :. :::.> .::! :.... :::'y}....:.: : i::�:•: ::.::.-..<'.'r:... ' : �::::.�.�..�.... �:::_. ,:.. 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';::•.;:.;•::�•: '; :r::•::•::•::o-:::•::•:>::a:::::.; •:;•::�:•:::•:�;;•::•:�:•. ....:.....:........ ..a r. : . ,;::�:ii;:;iii5>:i2�:�::i�>i?;�>Si;S:;:; H .�.rn••::::•.�i••::::.•.v.}�:1:A•:.•.:.:::::::xT: :.•::..i•::.d•`.i :.:•:.i{. •i:K•:}}}}f{};. ' �., _ . . . ........ y r.r4:�'Gi}i. ...... ..; . , :.; ;}..C.,�:..�v �t.. ..............___._�. . .�.......,. ___. . _ _ _. , ��'.��'.��'.��'.�'.��'.��'.OJ ••}..'. ' .• _ _ - — .. - ..- .. —.. . - ' .n••'•' . };r,:. .:' :. _ �'��/t/�� •1"Tr� •� r��. •�• � •1 � � -� , -3- � � 2. LOWLAND To the west of the Water Department service road is a wetland. Its Udorthent , soils provide weak ground support for structures and its wet substratum indicates poor drainage, high water tables and severe frost-action potential . � These conditions require that on-site inspections precede any construction activity. C. NATURAL BARRIERS TO DEVELOPMENT � Construction in the sloping and wooded parts of the study area requires special precautions to improve land and stormwater management. Streets built over steep slopes ignore the need to preserve developable land since such roads � require extensive land cuts and fills. Site plans for building on slopes over 12% should detail erosion control measures for sidewall excavations during construction, and drainage and replanting after construction. The existing � trees and ground cover help to slow the speed of runoff and should be preserved whenever practical. Landscaped depressions can be incorporated into the design of more intensely developed areas in order to slow stormwater runoff. , D. EXISTING DEVELOPMENT Existing structures and land within the study area are less varied than those ` immediately surrounding the site. Within the study area there are three concen- I trations of houses. The first fronts the south side of Wheelock Parkway. A second fronts the west side of Jackson Street where the houses rest on the upper ridge of the sloping land. A church and a residential home for retarded � adults are also located along Jackson Street. The third concentration of houses is in the interior and could be described as "characteristically rural". � E. SURROUNDING DEVELOPMENT Land use in the immediate impact area is widely varied. To the east is the j McDonough Housing development. McDonough provides housing for approximately 2,100 people in its 585 units (844 adults, 1,252 children under age 18). Maximum allowable units per acre with the current RM-1 zoning is 16. 13 but densities are less with the McDonough development. Single family residences are prevalent � north of Wheelock Parkway. The Soo Line Railroad tracks, apartment buildings, and the Rice-Arlington recreation fields make up the western border. A Port Authority Industrial Park (Terminal Warehouse, St. Paul Concrete) and the Rice , Street Branch Post Office border on the south. F. INFRASTRUCTURE AND PUBLIC SERUICES � Before all costs of developing an area can be estimated, the infrastructure and present municipal service levels require investigation. Such f actors as � I street capacity, sanitary and storm sewer capacities, the location and size of water mains, bus access, and park and recreational facilities help to determine the development capacity of the land. � ! - 6 - � m.�.__:, � � � -4- � � � � 1. CITY STREETS The city streets that border the study area are designed to carry vehicles from neighborhood streets to arterials. The Comprehensive Plan of St. � Paul designates the streets that border the study area as collectors. They are designed to carry vehicles from neighborhood streets to arterials. The daily average traffic counts are illustrated below. � Figure 4 , Study Area Average Daily Traffic Counts l 2875 � 4225 WHEELOCK PARKWAY 4600 0 � � :�:�TUDY��,AREA:;:�::�::�::::;:: d w ti � � � M H � ARLINGTON � 3550 2875 0 u, � Traffic Signal � The carrying capacity of Nrlington and Jackson are 15,000 ADT (average � daily trips). The carrying capacity of Wheelock Parkway is 10,000 average daily trips. Therefore, Figure 4 indicates that the area's major streets can accommodate traffic generated by additional development. Installation of a traffic light at the intersection of Wheelock and Jackson would improve � traffic management and provide added safety for area residents. 2. SEWER AND WATER , Municipal sewer service is provided to the study area by a combined storm- sanitary system. The impact of added sanitary flow from new development � is quite small. Impacts of development are greater if stormwater is channeled from rooftops and streets into the sewers� Stormwater from the surrounding area is presently channeled into the Trout � Brook combined sewer system. This is causing sewer backup problems in . neighborhoods to the south and southwesto Ecologically sensitive site designs for new development will slow stormwater runoff until sewer separation � can be accomplished. � - 7 - � � Eventually the sewers in the entire McDonough and Arlington/Wheelock neighborho will be separated. The city owned ponding site in the study area is an integral part of the separation process. If residential medium or high density development in the study area is permitted, there is a striking opportunity for coordinated improvement of the ponding site. � City water service is available to residential development by utilizing the three large water mains that lay beneath the streets bounding the study area. � � 3. SUPPORTING SOCIAL SERVICES Other factors affecting the development potential of the study area include � public transit, school system capacity and the availability of recreational opportunities. MTC bus service is provided along Jackson Street. This � is strictly a north-south route to downtown with connections to the east at Maryland. The St. Paul Public School System has indicated that they will be able to accommodate additional students housed in the study area. A recreation center near McDonough Homes and the Rice-Arlington playing fields serve the active recreational needs of area residents. Both facilities are within � mile from the study area. � _ � � � � � � � � � _ g � � , III, RE:iIOENl"IAL �1EVELOPMENT AL'�ERNATIV�:S � . � This study area examines two development processes. Options 1, 2 and 3 involve the construction of public streets to provide access to the houses and property �n the study area. Land acquisition by the city would be minimal. Future residential development would occ�r around the existing houses as the market allowed. Option 1 � is the Hoyt Avenue opening. Option 2 involves opening Idaho, Wanda, a portion of Hoyt and a portion of Abell. Option 3 adds sanitary sewer service to the homes along Abell by realigning Wa�da and providing gradual sewer line grades. ' Options 4, 5, 6, 7, and 8 discuss a variety of Planned Unit Development strategies. Option 4 explores single f amily, infill development along p>rivate streets. Option 5 1 provides 2-4 unit, infil� development in a low density res�dential development. Option 6 incorporates the development of townhouses in the study area. Option 7 combines townhouses with a high-rise building in a mixed density residential develop- ment with 16.96 units of new housing per acre. Option 8 combines townhouses and � a high-rise building in a mixed density residential development with 24.01 units of new housing per acre. Examination of these alternatives will aid in decisions pertaining to the future use of the land in the study area. Page 14 lists the � advantages of Planned Unit Development. A. PUBLIC IMPROVEMENTS � l. OPTIONS 1, 2, 3 The public improvement strategy is composed af three options. The parameters Ithat limit the options are: a. That street alignments follow current city rights-of-way to the extent I possible; b. That new streets provide legal access to existing houses in the area; and c. That the private market would dictate the type and timing of development ' within the area. 2. HOYT NVENU� OPENING, OPTION 1 � The opening of Hoyt would involve the construction of extensive supporting slopes, storm sewers, bituminous surface and curbing from Jackson Street I to Abell Streeto Sanitary sewer was not included in the improvements. The street would serve two houses in the interior and six additional lots. i�ssessments would be hi�h and charged to the small numbe!°° of landowners with abutting property. � � � j � _ g _ � Figure 5 Public Improvement Option 1 � �� arKwaY �� - � �� e,Id�h�� wnee�ocK � i r � ----- ' �� ..� � ��\\ �\ �� STORM �� 1\ o -= SEWER �� — � � u �� \ � ��\ / �� 2 � \ `�\..�_ �� vacatecl �� C. O c'1.Ve. � �J� .- � � - \ \ � � � ��\ .� \`�\ � d � � � �\ � � � w � � \ � � ---_- ' .�', ��\ C u �� r � � a ��\ � -- � � I �� /l a, .. 7 �\ I i II i�. •'�• \��J� I I .. ��\ ��✓ � ' vacated ` � nebraslca �_�. � t � � � � � � � � � � � \ � \ \ \ � � � �\ � � � � L �� \\ � \\ , �` � � �+ ��i � � i � \\��i i. .� I � \` � � � � � ' f� � Construction Costs: $80,880 e. arlinc�ton ave. Resulting Development Capacity: � 62 Units (3.87 acres) _ ,o _ I � � Since the street would directly access the long side of six undeveloped � properties the imnediate development potential would be limited to six lots. The construction of Wanda to the north and south of Hojrt would be required in order to access additional property. The resulting dead end , street configuration would severely limit circulation and landlock more land than the configurations in Options 2 and 3. Additionally, the cost of adding water and sewer service to Area A in the future would increase the cost of Option 1 even higher. The current RM-1 zoning would permit � 62 apartment units (capacity) on the 3.87 acres made available for development by this option. , Costs to construct Hoyt Nvenue are: $80,880 (street and storm sewer). 3. OPTION 2 � In accessing the total uplands area, Option 2 is procedurally the simplest for the city to implement because it employs the use of existing rights- of-way and standard assessment practice. City land would be used for most � of the street construction. Private land would be condemned only to accommodate a one block 1ength of Nebraska Avenue, the curve at Nebraska and Wanda, and the cul-de-sac at the end of Abell. Sanitary sewer service would be � provided only to lots along Wanda. Residents around the cul-de-sac would continue to use septic systems to process their sewage. An expensive pump station would be required to provide sewer service above Abell. Option 3 � provides sanitary service to this area at less cost than installing a pump station by varying the street alignment. Stormwater would be collected along Wanda and Hoyt and emptied ir�mediately into the Trout Brook sewer system via the adjacent pond. This plan would provide municipal services � and legal access to 9.1 acres of land in Are� A but would landlock some lots in the northwest corner. � Future construction could take a variety of forms due to the combined effects of assessments and the multip7e large lot owr�ership pattern in the area. There would be pressure to develop the lots with high density residential � uses and/or subdivide lots in order to make ti�e resulting housing units marketable. These pressures together with the current RM-1 zoning would encourage in�remental de�velopment and mixed densities over time. RM-1 zoning would allow 146 apartment units (capacity) on the 9.1 acres made , available for development by this option. C;osts to construct city improvements are: , $271,700 (Street and storm sewer) $ 59 400 (Sanitary sewerj $3�00 � � � ' - li - , Figure 6 Public Improvement Option 2 � _ �� —� % � � � ' _ — , ,—�� j-- .� _ ✓ , _ - ---;� ✓- - _ � �rkw y' /`��i /� WhCC1oCKi-�� I- • � , ��.� ��' _ —_�__,\� �r - � _ �� — � Q — � i _ �t—, : y a ; _ � ��--__ � 1 . , : � , —�.=--- � :, — � , �� \\�� • - * �—� �� STORM �� \��.� � --. . o , �� `�� SEWER �� . � � �i,� - — ; `�'�;� , � � � -= . ; ��` �� " : =,� SANITARY , � .� ; o-........�.... ; 2 ��'�, �_ ; __�__---, ! SE�IER _ — � — �i —. ; ' �acatecl � ' Q .IIDyt C7�/e. � � v �� . � � � . � 3 �� —� ; � �� • �� +:� =� ! � � i �.� � � � ,, . .� , � � � s , � ,�� , , � : � `�`� �� `—�� . � � �� ,,� ; �\ . * --�,=�y � � ` � � � ' � g 7 `�\\J� : � .. ', p � vacated ��, , , nebraska�e.�a�. � ` `,Q . � •; �- � �� 9 8 ��, � .�� • ' ' LJ : � , . . .. : : �� _ . .. : � x � ::`� ' �v �`�`,o,`----� � � �. ++ `�'`. �` , ,, . � � ; � � � � � `�'�,c�� -•�. � � Construction Costs: �_� �� `� �271 ,700 (Street and Storm Sewer) ' , 5 59,400 Partial Sinitary Sewer) c� i 5331 ,100 Tota�- � — - -- -� � - -- - - _ --- - -- - - - �- Resultin Develo ment �� a e arlinc�ton_ ave g p p city: -------- -- � �- 146 Units (9.1 acres) � - 12 - � . Figure 7 � Public Improvement Option 3 � �� . , arkway ��' C�.IC�e7f1� � v,r►�eelocK P �i ' � � , Q . : � ----- � / ' �� \`` STORM �� \� �— SEWER �� \�' v --- n n c�� \ : � tl \\� � --- : � �� Ti � a-......�.... SEWERARY 2 � � ° � `� .,�._ �j _ ' � � . � l / : � vacate� �� . . e.�'lOyt c7Ve� � • - J � � \ I • /� � �� . � \• � \ \' � ' . �\: � \� � ; O \� i � � \� ' ----- v ��; . � � � �\� : � «+ �\ • . � �� : �� ra ��• � ' I � \ � � �� -- � • \ ' •;r. � : �I :' �\ • I I II :.' 7 �\: � II ;.. .. \�� 'I ' � � •' vacatecl \\`�' nebra �e�. � �o � � � �: � � � �. �� :� � � ;� � , \\ \ •' � � � . � � � � ` \\� �� A • �\\ � � � I \\\� ` J �"� �� .� � � � � �,�„ \��r'•. � �\ . Construction Costs: � _ \ $325,270 (Street an�� Storm Sewer) � $ 80,740 (Sanitary Sewer) ' $406,010 Total � � Resulting Development Capacity: e. arlmqton ave. \ � 145 Units (9.0 acres) � , � � 4. OPTION 3 Option 3 consists of a public street and sewer alignment that would provide � sanitary sewer service to the Abell Street cul-de-sac. As in Option 2, land would have to be acquired to construct one block of Nebraska Avenue and to accommodate the realignment of Wanda. Replatting would be necessary. If the accompanying land condemnation were to be contested, street constructi delays could lead to higher land acquisition costs and assessments. The change in street alignment and the addition of sanitary sewer are the substant�' differences between public improvement Options 2 and 3. New development with this option is also limited to lots that front city streets. Since this plan landlocks the same lots as in Option 2, the amount � of land available for development is about the same (9 acres). As in Option 2 the pressures to develop high density housing and to subdivide lots would be present because of the combined effects of assessments and the multiple � large lot ownership pattern in the area. The current RM-1 zoning would allow 145 apartment units (capacity) on the 9.0 acres made available for development by this option. � Costs to construct city improvements are: $325,270 (Street and storm sewer) $ 80 740 (Sanitary sewer) � $�,�Tb B. PLANNED UNIT DEVELOPMENT � 1. OPTIONS 4, 5, 6, 7, 8 � The second form of development examined in this study involves the use of the Planned Unit Development (PUD). The Zoning Ordinance describes a Planned Unit Development as a process that "provides a desirable environment� and "shall be harmonious to the general surrounding uses permitting flexibili in overall development while insuring adequate safeguards and3standards for public health, safety, convenience, and general welf are". The PUD process encourages citizen involvement during the formation of development , guidelines and site specifications. A planned development that uses design ideas from individuals, city departments, the neighborhood, developer and Planning Commission, can take advantage of the natural features of the � land in a way that will benefit both the neigborhood and the city. While there are many types of PUO's, the ones explored in this study will � be strictly residential. Al1 five PUD options require that the city or private developer acquire a considerable amount of land for the purposes of resale in order to initiate the coordinated development of the land in the study area. There are advantages for both the developer and the � citizens involved if a PUD process is used. These include: � 3 Zoning Ordinance, City of St. Paul, adopted August 28, 1975, p. 48. � ' 14 " � � � . A variety of housing types can be planned and constructed in a coordinated � manner. . There exists a greater opportunity for innovative architecture and site design without the restrictions of the standard grid pattern, zoning ordinance regulations and wide streets. This opportunity can f acilitate a high quality development, at lesser cost. � . Clustering of structures can increase the amount of common space and recreation area. Pooled financial resources of the residents can be � . used to provide tennis courts, swimning pools and tot lots. With flexible standards for streets, natural land features can be preserved, residential privacy enhanced and vehicle speeds reduced. � . Safety of pedestrian movement can be increased through the development of separate pedestrian walkways. . Underground utility lines improve the appearance of development and are less vulnerable to storms. When placed beneath sidewalks or boulevards, � . streets need not be torn apart to make necessary repairs. Stormwater retention and soil management can be applied to the entire site rather than during incremental development. � . The neighborhood plays a greater role in the Planned Unit Development process than in the conventional form of private land development. The site review process and public hearings provide for citizen involvement. � 2. PLANNED UNIT DEVELOPMENT OPTION 4 ' Option 4 consists of a Planned Unit Development of single family infill housing along private streets. The streets would follow the contour of the land and would serve numerous housing nodes (see Figure 8). These � private streets could be narrower than public streets because they serve only the traffic generated internally by the residents. Less rigorous construction standards for the streets provide more land for housing and amenities. Overall development costs would be less than in a plan which � included wider public streets. These savings could be used to fund construction of communal open space, ponds, landscaping and other on-site amenities. ' �evelopment costs per unit include: land, $11,450; site improvements (grading, streets, utilities, etc. ), $18,800; building materials and labor, $60,000; engineering and design, $4,200; development contingency, $2,500; and profit, $14,500. A $11,150 inflation cost reflects expenses associated with a � one year construction delay. Fifty new houses averaging $122,600 each and private streets could be built on 14.26 acres of land. See Figure 14 for cost comparisons between Options 4-�. , Because this option considers adding only single family houses, the density nf the development would be less than than of the neighborhood to the north. � With this option reloca�ion of residents are limited. Costs to the city for municipal services would be minimal since snow plowing and upkeep of the new streets would be privately managed and funded through a homeowners associationa f=ire and Police protection woul� be provided by area units. � � 1 - I� - i Figure 8 Pianned Unit Development Option 4 j Single Family Scheme � � � � � � � � , � �' Develo�ment Capacity: s;" 50 Single Family Units (New Construction)� Acres Developed: 12.9 acres , Units Per Acre: 3.87 Units Development Costs Per Unit: � Land $ 11,450 Site Improvements $ 18,800 � Bldg. & Labor $ 60,000 Engr. & Design $ 4,200 Contingency $ 2,500 Profit $ 14,500 � Inflation $ 11 ,150 Total Cost Per Unit 122,600 � � - 16 - � � � 3. PLANNED UNIT DEVELOPMENT OPTION 5 � Uption 5 consists of a Planned Unit Development of existing single family houses, duplexes, and fourplexes. As in Option 4, this option would limit ur exclude the need to relocate residents from the develapment area. Fully � developed, this option could provide 100 new housing units built on approximately 14 acres of land within the study area. Access to this development can be gained from 2 or 3 points along Jackson , Street. Private streets would be built to follow the contour of the land and serve numerous housing nodes (see Figure 9). As in the other Planned Developments, the private streets could be narrower than public streets , because they serve only the traffic generated internally by the residents. Development costs per unit include: land, $5,750; site improvements, $7,600; 1 building material and labor, $55,000; engineering and design, $3,300; development contingency, $2,000; and pr�ofit, $11 ,000. A $8,500 inflation cost would reflect expenses incurred with one year construction delay. The total cost per unit is estimated at $93,150. Municipal costs for Planned Developments � Options 4, 5, 6, 7, 8 may be less than Options 1,2 and 3 because snow plowing and upkeep of the new streets could be privately managed with a Planned Development and paid for through a homeowners association. � 4. PLANNED UNIT UEVELOPMENT OPTION 6 � Option 6 consists of a Planned Unit Development of approximately 165 townhouses. All of the land in Area A, except for the lots along Wheelock Parkway, would be acquired by the city and existing structures removed. This is � done in order to facilitate continuity of design for the entire residential development. Preserving the existing slopes, vegetation and solar orientations would provide a wealth of natural amenities for the new residents. Additionally, site design which includes common spaces for passive recreation permits � somewhat higher densities than would conventional grid pattern lots and streets. The townhouses would be clustered along narrower, private roads similar to those in Option 4 (see Figure 10). , Access to the area could easily be gained from several points along Jackson and from one point along Wheelock Parkway. Because Wheelock is a Parkway and there is 7ess traffic on Jackson access for any new development of , Area A should be from Jackson Street. Development costs per unit include: land, $12,100; site improvements, � $5,100; building materials and labor, $48,000; engineering and design, $2,800; development contingency, $1,700; and profit, $10,500. A $7,800 inflation cost would reflect expenses incurred with one year construction 1 delay. Approximately 165 townhouses averaging $88,000 each could be built on 20.3 acres. , � � _ �a - . � Figure 9 Pianned Unit Development Option 5 � ,,,�r, . ,w�, . ; :. 2-4 Unit Scheme � � � .,,� ,. .�, M,. ' � �':. � � \ ��I ��..' � ' � .. .1 �. , q, :.:...,.�:. ,' � 6� . �«' � , ,.Cw � � .. . � I �' °i..s � � � � . .: �".. �. � ,....,u. ^ :'. � # ' R, �' �� , Development Capacity: �- 100 duplex and 4-plex units "�"�� (new construction) Acres Develo ed: 12.9 Acres � a. : p ��" Units Per Acre: 7.75 Units ' Ay � Development Costs Per Unit: � Land $ 5,750 Site Improvements $ 7,600 Bldq. & Labor $55,000 , Engr. & Design $ 3,300 Contingency $ 2,000 Profit $11 ,000 � Inflation $ 8,500 �y"�. Total Cost Per Unit 93,150 _ ,$ _ i � , 5. PLANNED UNIT DEVELOPMENT OPTION 7 � Option 7 consists of a mixed density r�sidential Planned Unit Development that would add an additional 346 new housing units to the city. All of , the land in Area A except for the lots along Wheelock Parkway would be acquired by the city and existing structures removed. Approximately 130 units of townhouses could be built below the steep slopes. A high-rise with 12 stories could be built into the east slope using part of the drop ' in elevation for a two level parking garage. The parking areas for the high-rise could have a separate access to Jackson Street. � Private streets would serve the interior. This is an important access feature since the high-rise demands a more carefully designed circulation pattern to avoid traffic conflicts. The use of separate roads in the interior � and to the high-rise effectively separates the traffic generated by each. The character of the townhouses in this option would be similar to that of Option 5 since use �f comnunal open space and the contour of the land � would continue to be major design features. Orientation of the townhouses would be toward the pond and generally away from the high-rise. ' Development costs per unit include: land, $5,250; site improvements, $2,800; building materials and labor, $49,000; engineering and design, $3,100; development contingency, $1,600; and profit, $9,200. A $6,500 inflation cost reflects expenses incurred with one year construction delay. The / total cost per unit is estimated at $77,500. 7he per unit cost of this option is compatible with average market values of houses in the surrounding area. � 6. PLANNED UNIT DEVELOPMENT OPTION 8 , Option 8 consists of a mixed density Planned Unit Development that would add an additional 490 new housing units to St. Paul on the 20 acre site. Approximately 130 units of townhouses would compliment a 20 story high- rise building. ' The mixed density Planned Developments (Options 7 and 8) utilize site planning and design to minimize neighborhood hardships such as increased traffic. � A separate road system for the high-rise building and townhouses separates vehicles generated by each, and minimizes traffic congestion. � Since the higher density option would produce a higher tax base, an opportunity for accompanying development will be examined here. As was mentioned earlier, the city owns a ponding site within the study area boundaries. Presently, the pond has limited usefulness in slowing the entrance of stormwater into 1 the combined sewer system. The pond area also functions as a wildlife refuge. Use of the lowlands by the new residents in the study area would increase the amount of open space available fur passive recreation. When � the lowland is considered part of the PUD, the ratio of npen space to housing units increases by a factor of two. Therefore, an increase in density of new development as proposed in Option 8 could be justified. � ' - 19 - t � From a community design perspective, capital improvements in the lowlands (e.g. , pond deepening and construction of access paths and bridges) should ' be concurrent with and compliment any high density residential development. The ponding area improvements will not only benefit the higher density population to the east that would use the new park and recreation opportuniti� but also the surrounding neighborhoods. Improving the pond area could be the first step in the eventual separation of storm and sanitary sewers for the entire district. Development costs per unit include: land, $3,750; site improvements, $2,000; , building materials and labor, $48,000; engineering and design, $3,000; development contingency, $1,600; and profit, $8,750. R $6,300 inflation � cost reflects expenses incurred with one year construction delay. The total cost per unit is estimated at $73,400. The per unit cost of this option is compatible with average market values of houses in the surrounding area. , , � � � � ' 1 t 1 1 � - ZO - I , Figure 10 � Planned Unit Develo ment O tion 6 P p Townhouse Scheme � �� ,. ��. � � � � � ;;. , ' ' � .� � �� `S i � �i, � z' wl�, `� I! ��; � �.,. � � � �:. � `�: � � ��_' I� � ' , , �3 �• �C �.: A � 4 t �: � � : � �, �� :' Y�: , �: �� Development Capacity: , 165 Townhouse Units r � �..: ` � (New Construction) � �1�� r.':� k&B �. , , �: �« � ��i� E Acres Developed: 20.3 Acres a.�&�, �.Liy �: ?��. ;,� iv" � �: Units Per Acre: 8.12 Units ' ' Development Costs Per Unit: Land �12,100 Site Improvements $ 5,100 Bldg. & Labor $48,000 ' ;r Engr. & Design $ 2,800 Contingency $ 1 ,700 �;_:� . �;. " .. Profit $10,500 Inflation $ 7,800 , �� ?:��: . . . •....: _ .. _ �` Total Cost Per Unit 8,000 , 1 - 21 - , Figure 11 Planned Unit Development Option 7 � Mixed-Use �cheme(16.96 Units per Acre) ._ � .. . _; z: � ..� � _ � . _ . : � ;§a �� ik' , . :a:!-•. .'.�&.::::s . � ... , �t. Y � � �-. � ?" � F= �`i �•�\; �.:. . � t , 3�� a� � � € 'i; �- ,;F� F��3 3 � � �', Y-:.,: 4:' 1 � ,..Y:` 3�� '. �..:.. � � : Development Capacity: ' , ., � '; 130 Townhouse Units � 216 Hi hrise Units 34 Tota Units—�New Const.) �_�� Acres Developed: 20.4 Acres ` = Units Per Acre: 16.96 Units A�, � :�a � Development Costs Per Unit: �; Land $ 5,250 Site Improvements $ 2,800 Bldg. & Labor $49,000 � Engr. & Design � 3,100 Contingency $ 1 ,600 ; ,� �,�..s.': � ;: .... �:r : Profit $ 9,250 ; . Inflation $ 6,500 . . � .��,.,,:.n a?s�. .:: ,.�:��a'� r��.�.,,. x � , _ Tota Cost Per Unit 77,500 � , - 22 - � , . Figure 12 � Planned Unit Development Option 8 Mixed-Use Scheme(24.01 Units per Acre) ' a ��t.� �., q� , 3=�� °'d.,: �� ,:. , I ; . 1 ,� �, . � , ,� I ' ':�i � ". i � �;�: �M+3 t irs Y'( 1 �: � t � �'. � ,d `{ f � � �. � ��;>�.:. : � Development Capacity: 130 Townhouse Units 360 Hi hrise Units 490 Tota Units New Construction) � �� II IVi+� �� Acres Devel oped: 20.4 Acres � � i , � ' Units Per Acre: 24.01 Development Costs Per Unit: Land $ 3,750 � Site Improvements $ 2,000 Bldg. & Labor $48,000 Engr. & Design $ 3,000 Contingency $ 1,600 , Profit $ 8,750 Inflation $ 6,300 . � Total Cost Per Unit 73, 0 , , - 23 - , � FIGURE 13 ZONED DENSITY MATRIX AMOUNT POTENTIAL DEVELOPMENT � POTENTIAL OF LAND # UNITS COST ZONING # UNITS AFFECTED PER ACRE PER UNIT REQUIRED � OPTION 1 62 3.87 acres 16. 13 NA RM-1 OPTION 2 146 9.1 acres 16. 13 NA RM-1 ' OPTION 3 145 9.0 acres 16. 13 NA RM-1 OPTION 4 50 12.9 acres 3.87 $122,600 PD � OPTION 5 100 12.9 acres 7.75 $ 93,150 PD � OPTION 6 165 20.3 acres 8.12 $ 88,000 PD OPTION 7 346 20.4 acres 16.96 $ 77,500 PD � OPTION 8 490 20.4 acres 24.01 $ 73,400 PO , � � � , 1 ! 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I��z po � cn rn , ,� �z o mI � o � � o �oN � I�mo' . * � � O N I � � � � IV. STAFF ANALYSiS AND �2ECOMMEPJUATION ! A. ANALYSIS ' � The Trout Brook/Hoyt-Abell Study examines the feasibility of eight development options . Each option outlines how many affordable housing units are created; what the impact on the City's tax base may be;and how the development relates to the neighborhood. ' Access and future development can be provided in two distinct ways: (1 ) by constructing public streets (Options 1-3) ; or (2) by con- , structing a Planned Development (Options 4-8) . The traditional approach is to construct public streets along established rights- of-way as discussed in Options 1 , 2, and 3. While this approach 1 is the most expedient and involves little financial support by the City, it may be accompanied by high assessment costs, subdivision and incremental development. � The Planned Development approach, as discussed in Options 4-8, is rapidly emerging as an alternative means for development of resi- dential areas . Its basic characteristics are: (1 ) the cluster- � ing of housing to preserve and protect natural amenities; (2) the provision of large areas of usable open space; (3) the reduction of development costs ;and,(4) the maintenance of moderate densities within the planned residential district. � 1 . Public Street Options � Constructing public street Option 1 would provide access to two houses and six lots. Opportunity for development is limited to 62 apartment units of infill housing on 3.87 acres of land. � The total cost to construct Hoyt from Jackson to Abell Street would be $80,880. A limited number of property owners would benefit from Option 1 and these few owners would be required to pay all assessment costs . � Optinn 2, which involves constructing portions of East Idaho, Wanda, Hoyt, and Nebraska Streets , opens more land to develop- , ment than does Option 1 . Maximum development opportunity in Optior� 2 is limited to 146 apartment units of infill 'nousing on 9.1 acres of land. Grading, paving, and providing sanitary � sewer improvements would cost an estimated $331 ,000. Sanitary sewer would not be provided to lots along Abell Street in Option 2. � Option 3 is a variation af Option 2 that realigns the Wanda Street right-of-way so that sanitary sewer service can be provided to lots abutting Abell Street. Maximum develop- � ment opportunity in Option 3 is limited to 145 apartment units of infill housing on nine acres of the site. Grading, paving, and providing sanitary sewer improvements would cost an estimated $406,010. , � -27- f i Al1 three public street options would carry certain � "social costs": 1 . Less opportunity for affordable housing units is created than through moderate density Planned � Developments. 2. Considerably less tax revenue is generated through � moderate density Planned Development as is illustrated by Figure 15 Tax Revenue Projections) . 3. Incremental development is promoted at the expense of � the neighborhood character of the area. 2. Planned Development Options � . Planned Development Options 4-6 consist of low density developments ranging iri density from 3.87 to 8.12 units per acre. The high cost of land and site improvements associated f with low density development drives up total unit costs to $88,000-$122,600 per residence. Staff finds that per unit costs in Options 4, 5 and 6 exceed the sales market for the , area. Marketability of "high bracket" housing units are negatively affected by nearby public housing and industrial land uses. � Options 6 through 8 require that as many as 35 area residents be relocated. Obviously these residents have a keen interest � in all deliberations affecting the future development of the area. Proceeding with clearance activities requires current residents to give up their "country acres" in the heart of �he City. These residents may be less than anxious to move so � that the land can be better utilized for somebody else's benefit. Every effort to relocate these current residents in the neighborhood or the Planned Development should be � pursued. Option 7 consists of a low to moderate density Planned ' Development of 346 new housing units with a market value of $77,500 per unit. Option 8 consists of a moderate density Planned Development of 490 new housing units with a market value of $73,400 per unit. Staff finds that in both Options � 7 and 8 average unit costs are comparable with average market values of the surrounding area. Both Planned Develop- ment Options 7 and 8 provide striking o�portunities to � coordinate the development in the area by completing construction over a short period of time and availing the developer economies of scale. The developer must, however, assume a large capital investment and proceed wi�th public hearings on the Plan before � construction is undertaken. ' -28- � � iIn summary, the surrounding area wi11 benefit from a high quality Planned Developr�ent. The market values and des�irability a�' surrounding properties should increase with � a Planned Development. Conversely, incremental dev�elopment does little to enhance neighborhood character and could impair property values . ` All evidence suggests that. Options 7 and 8 provide the best opportunity to utilize the site at its highest and best use, , expand the City's tax base, provide part of St. Paul 's need for affordable housing, and enhance the character of the surrounding neighborhood. ' B. RECOMMENDATION Staff recommends that a project feasibility analysis of mixed � density options 7 and 8 be undertaken. This analysis should include: a discussion of the Planned Development �one concept as it applies to the specific project area; an indication of the anticioated level of developer interest; further refinement i of development costs ; and finally, a recommendation on whether proceeding with either option 7 or 8 :� warrarlted. � , , , ' , � � � ' , m 29- � � V. CREDI7S � City Council Ron Maddox, Chairman � Public Works George McMahon Committee Victor Tedesco ' Plannin� Thomas P. FitzGibbons, Jr. , Chairman , Comnission Liz Anderson Nelsene Karns Clark Armstead David Laneqran Ralph Brown Joseph Levy James Bryan David G. McDonell � Carolyn Cochrane Joseph Pangel Sam G rais John Schmidt Rev. Glen Hanqgi Gayle Summers , Sister Alberta Huber Janabelle Taylor David Hyduke Adolph T. Tobler Richard Kadrie Robert Van Hoef , Achninistration James J. Bellus, A.I.C.P. , Director and Department of Planning and Econ anic Development � Policy Peggy A. Reichert, Deputy Director, Planning Division Direction Department of Planning and Economic Development James Zdon, Principal Planner, Neighborhood Section, ' Planning Division Research Fred S. Haider, Planner-in-charge ` and Mark Flinner, Intern, Mankato State University Planning Rick Beeson, Project Manager, Housing Division Dan Brewer, Architect, Development Division � � The District 6 Housing Committee and District 6 Land Use Task Force deserve special credit for � their review, input, and support of this study. , , -30- , , n * � � �w , *� � r a��c� a�� y . .� . .f , hr �J f i !�� #`r "; � �+�� ,i � F °� � ��"F.�rtik±9 ta�. l;"��,�.��,„��,a f�^ �,t��;:� �^� s �; _ ;t ; .; �, *�� $ { ' ;�'��r�� , m� .n'� ��n-. ��y�°•i . "' � i��?- f � ;4� x� � � > -k r i a�d�f'�,� ��s�t� ��'� '�'� . '•��l L ,Hq�,,�"' t��"��iti. i t` � :'x # t?� �� . �� .. �. ��. /�` . 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INTRODUCTION 1 A. BACKGROUND 1 �� II . PHYSICAL DESCRIPTION OF THE STUDY_ AREA 5 A. ORIENTAtION 5 � 6. SOIL CHARACTERISTICS 5 - . UPLAN 5 � 2. LOWLAND 6 C. NATURAL BARRIERS TO DEVELOPMENT 6 �; D. EXISTING DEVELOPMENT 6 - E. SURROUNDING DEVELOPMENT 6 � F. INFRASTRUCTURE AND PUBLIC SERVICES 6 . CITY STREETS � � 2. SEWER AND WATER 7 � 3. SUPPORTING SOCIAL SERVICES 8 � III . RESIDENTIAL DEVELOPMENT ALTERNATIVES 9 A. PUBLIC IMPROVEMENTS 9 OPTIONS , Z, 3 9 � 2. HOYT AVENUE OPENING OPTION 1 9 - 3. OPTION 2 11 4. OPTION 3 14 � B. PLANNED UNIT DEVELOPMENT 14 _ OPTIONS 4„ 5, 6, 7 14 2. PLANNED UNIT DEVELOPMENT OPTION 4 15 � 3. PLANNED UNIT DEVELOPMENT OPTION 5 17 4. PLANNED UNIT DEVELOPMENT OPTION 6 17 5. PLANNED UNIT DEVELOPMENT OPTION 7 19 � 6. PLANNED UNIT DEVELOPMENT OPTION 8 19 IV. STAFF ANALYSIS AND RECOMMENDATION 27 � A. ANALYSIS 27 � PUBLIC STREET OPTIONS 27 �� 2. PLANPJED DEVELOP�9EPJT 28 B. RECOMMENDATION 29 � V. CREDITS 30 � � � p � MA S AND ILLUSTRATIONS � FIGURE 1 SITE LOCATION � FIGURE 2 NEIGHBORH000 AREA CONTEXT 3 � FIGURE 3 TROUT BROOK/HOYT-ABELL STUDY AREA 4 FIGURE 4 AVERAGE DAILY TRAFFIC COUNT 1e FIGURE 5 PUBIIC IMPROVEMENT OPTION 1 ,� FIGURE 6 PUBLIC IMPROVEMENT OPTION 2 12 FIGURE 7 PUBLIC IMPROVEMENT OPTION 3 13 FIGURE 8 PLANNED UNIT DEVELOPMENT OPTION 4 16 � FIGURE 9 PLANNED UNIT DEVELOPMENT OPTION 5 18 FIGURE 10 PLANNED UNIT DEVELOPMENT OPTION 6 21 FIGURE 11 PLANNEO UNIT DEVELOPMENT OPTION 7 22 � FIGURE 12 PLANNED UNIT DEVELOPMENT OPTION 8 23 FIGURE 13 ZONED DENSITY MATRIX 24 FIGURE 14 COST COMPARISON MATRIX 25 � FIGURE 15 TAX REVENUE PkOJECTIONS 26 � � � � � � � � � � ii � � Figure 1 � Site Location I 1 , . �� s� i �� : � ;��.��.s�� .a'� r.�, ',�: .� �. � �.� ;,�..".: , �� :� � �. � : ,�� . � 3 = F b�: $: ��:: & I �� 55^ 4i � �.� .��,'� 3��': �z; _, y�� ,\� `x f A Z � � ��.$'r�3 �'..�� aL'I@ �iu��'�� •� `�Da` ,� .S� � ° °��',"'�' a .:�°`.+ `.� z��.' �.��r � F� '"��::; � c�. , �` � � ��`� � 4� � � ?L �P � �i$��'�� a ��'�S+� �� ,, � � }� . a��*S�, �`"°� � . � i ^Y, �� '*; �� ,� � �.��.x`��"an � &�.�� ' �. : � � .S4N1 1 '�'��y �'.�c�'a,�,� 1�a z�'� � ,� ,. �u! .nd� `a �.� ..„ ,;.. ...: aa� .� � .f � � :;� � ��' ;ep� �: � '.�`�_ '� � �� v�� "' � �'.� � "t. 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' . . � .:, 1F {�F �� .; s a k 1.� �* �. ,. �� - Y � � F�'� �� :: ��,. i��`�'s� y,�i $� � 'i: �� ' ,�� .'�'.�� .\ `,� � es �` :£��` aa.,� � �c: '. ��'� ; �.:,�. ,'�� ,� �'�� +ta �'k r a�� .� � s .x�'�� .�� , V '� .� � � a . � �, k�xa+ R ' �".: .. .. . ,..>.� . .... ......... ... ... . � < � .. . ..� ti. �.. ,....:�Z.�',`iCS�';s `� ::'� ��. � � -1- � � I. INTRODUCTION � The Trout Brook/Hoyt-Abell Land Development Study was initiated by the City Council to seek ways of providing access to houses and lots south of Wheelock Parkway and � west of Jackson Street. The study investigates �eight possible access and develop- ment strategies. The first three examine options f or public street openings and the anticipated development that would occur with each option. The final four �. examine Planned Unit Developments that provide access to the area and a variety of housing opportunities. A. BACKGROUND � There are four houses and a mobile home in the study area that lack legal access. They are largely hidden fran the surrounding parts of St. Paul by hills and trees. Current access is provided to these houses via a Water Department service j road built on a private easement. The Water Department is not willing to pave the road because repairing the water mains that lie beneath it would be more � difficult and costly. The owner of the house located at 45 East Hoyt Avenue had attempted to sell their house. After securing a prospective buyer, mortgaging arrangements were � sought. Request for conventional, VA and FHA financing were denied by lending institutions because the house had no legally established public access. A petition for the construction of Hoyt Avenue was submitted by the residents in the immediate area and an engineering report was made following the petition's advised road specifications. � The Public Works Department has determined that construction costs for Hoyt Avenue ��vould be relatively high. Moreover, the steep grade along Hoyt would require extensive filling which would cause long slopes along the easement. � Estimated costs in January 1980 totalled $67,400 for curbing, bituminous street surf ace, drainage and slope construction. They further pointed out that the road would access only two of f our existing houses and the long sides of a few additional lots. The total assessment of $57,800 (estimated in January 1980) would be distributed among eight property owners. The Public Works Departme recommended deferral of the improvements until results of this Planning Study are known. The study, according to the Public Works Department, "should provide � long-term guidance for more coordinated a�d integrated development of this large parcel of rough, undeveloped land." � Recommendations to the Public Works Committee), Public � 1 Summar of En ineerin ( orks Department, ub ic Hearing, anuary 30, 1980, p. 2. � ' -2- � � - Figure 2 � Nei hborhood Area Context Ma 9 p -iARP � UR c,n �,r,�s __::_ - _ :�:: .:.;.:.::.:.:.. ..,:•.•: ..... ::: ::.. ,..•., .::::.:.:.�r:: .• ::,�. ..•:�:::::... ::::�...... --------.. � `:tr<.;:.:;::.::;:;;:::::.:.:.:... •-- :: ........... .;::.:... e.�,:: •.." <?:f:�:2:.c;.;::;%? .. ........,,�::::.�.:�.. .r:. - :.�:.�.. - i:;;: �:r•>:�;��;::��::::�:::.:�::�::.:::.>::.:�� :::��:::. ... ........... :.:.:....:::... . . ;.;,::::,.:::........: ...:.;:;.>:;.,, . „ ,.... :;<.:;..... :;::;.;:�;>;. ....,, :::c»' _ _:,u -.{.. 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';} ::s::::':::::;.,•:;,•. .ti. :r •�;�: :•:ir •r ..�:`• ..>..c•�a:� •:rs:• :.�::•;:.,': :;:y;:;<• ..t'��:t�;; N }:CS: r:.y• n;K:::::::. ta:� �: ::�:• :bf: �•�S. �:• � •'•s..� �'1•. � �.. _ �._........._.:z�•:�>•._::>�:�>`..:'s:::�:��-i��'•�� . , ........ ,.•::.,. ...::•::.. . ..... ... . : . . ..... . . . . :. :.;;.....•::.• . ... .. . :. . ••r�••: :: :..:•:: . .. .. .. :::• ::.:: ... ..�:•::.�::::::::::..... .. .. :.: .. .::::. ..�................ .. ... . .. MAl�WtsFNB- _ . . ... •>:•:::.;;:::::t•::•, - --- ___ =_ --- - - _ • � �- � . . r*'s5a L �� ------------ - - - � � —3— . � Figure 3 Trout Brook/ Hoyt-Abell Study Area � ;� '� � :_� „ � �: ��. �'�� , ,�, -� �� .�; j ��4 � � � w � ��.. � � � :� - � �. � � M�� ; � � � . � � F � R-2 i � Single Family Residential � .;��:, , �A ; RM-1 i � �' Low Densi ty `' Multi-Family � � ` � � � . �. � Residential � I-1 ��; :. �. � Light Industrial ��. ��: � �r��:p�. � :t ; ;�. �� . .... . � � -4- � � � I1. PHYS�CAL i�ESCRIP��10N OF THE STUDY AREA 1 : A. ORIENTATION � The study area is located a roximatel 2 mile west of I-35E and 2� miles north PP Y z of downtown St. Paul. It consists of an area bounded on the north by Wheelock � Parkway, on the west by the Soo Line Raiiroad tracks, on the south by Arlington Avenue and on the east by Jackson Street. The general terrain can be described as sloping away from Wheelock Parkwa�r and Jackson Street toward a Water Department � service road. Some slopes are steep ( 12-24%) but most are moderate (less than 10�) and are buildable. The steepest �lopes form a northern and eastern rim in the study area along Jackson and Wheelock and provide natural land buffers � for surrounding neighborhoods. Just west of the Water Department service road is a city owned ponding area _ which experiences seasonal and temporal changes in water level. This lowland I extends to the railroad tracks on the west and will be considered separately because of its inappropriateness for housing develupment and because of its value in the system of water ponding and purification. , On the western boundary of the ponding area is the Soo Line tracks right-of- way. The tracks are currently used twice daily, one train to the north and another to the south. Use is not extensive and thus is unlikely to cause serious � disturbances to residents in the Trout �rook/Hoyt-Abell study area. Views of the city skyline from the high ground are to the south and southwest � across the ponding area. The south facing slopes also provide solar energy collecting potential to t�is site. Use of such energy features is highly encouraged by the Comprehensive Plan of the City of St. Paul for existing and future development. � B. SOIL CHARACTERISTICS 1 . UPLANO � The soil type to the east of the Water Department service road is Chetek- Urban mixed with gravel deposits and fill. This sail has several negative � properties requiring noting: a. The soil drains rapidly and, therefore, can slow revegetation on steeper � slopes; b. When exposed, this soil is subject to severe erosion; and c. The soil has poor sidewall stability requiring special precautions during excavation. � Despite these apparent drawbacks, the soil makes a very good base for construction because of its low frost-action potential and good soil strength.2 � � 2 Inventory and Evaluation of Soils for Urban Redevelopment Moechnig, Howard J. , District Conservationist, USDA, June 16, 1976, pp 7, 8. � _ � _ � � 2. LOWLAND � To the west of the Water Department service road is a wetland. Its Udorthent j soils provide weak ground support for structures and its wet substratum indicates poor drainage, high water tables and severe frost-action potential . � These conditions require that on-site inspections precede any construction activity. C. NATURAL BARRIERS TO DEVELOPMENT � Construction in the sloping and wooded parts of the study area requires special � precautions to improve land and stormwater management. Streets built over � steep slopes ignore the need to preserve developable land since such roads require extensive land cuts and fills. Site plans for building on slopes over 12% should detail erosion control measures for sidewall excavations during � construction, and drainage and replanting after construction. The existing trees and ground cover help to slow the speed of runoff and should be preserved whenever practical. Landscaped depressions can be incorporated into the design of more intensely developed areas in order to slow stormwater runoff. � D. EXISTING DEVELOPMENT Existing structures and land within the study area are less varied than those , immediately surrounding the site. Within the study area there are three concen- trations of houses. The first fronts the south side of Wheelock Parkway. A second fronts the west side of Jackson Street where the houses rest on the � upper ridge of the sloping land. A church and a residential home for retarded adults are also located along Jackson Street. The third concentration of houses is in the interior and could be described as "characteristically rural". � E. SURROUNDING DEVELOPMENT Land use in the immediate impact area is widely varied. To the east is the � McDonough Housing development. McDonough provides housing for approximately 2,100 people in its 585 units (844 adults, 1,252 children under age 18). Maximum allowable units per acre with the current RM-1 Zoning is 16.13 but densities � are less with the McOonough development. Single family residences are prevalent north of Wheelock Parkway. The Soo Line Railroad tracks, apartment buildings, and the Rice-Arlington recreation fields make up the western border. A Port � Authority Industrial Park (Terminal Warehouse, St. Paul Concrete) and the Rice Street Branch Post Office border on the south. F. INFRASTRUCTURE ANO PUBLIC SERVICES � Before all costs of developing an area can be estimated, the infrastructure and present municipal service levels require investigation. Such f actors as � street capacity, sanitary and storm sewer capacities, the location and size of water mains, bus access, and park and recreational facilities help to determine the development capacity of the land. � ,� - 6 - ' � � � 1_ CITY STREETS The c�ty streets that border the study area are designed tn carry vehicles from neighborhood streets to arterials. The Comprehensive Plan of St. � Paul designates the streets that border the study area as collectors. They are designed to carry vehicles from neighborhood streets to arterials. The daily average traffic counts are illustrated below. � Figure 4 � Study Area Average Daily Traffic Counts � 2875 � 4225 WHEELOCK PARKWAY 4600 0 � � :'�$TUD`��,AREA��i�:�::��'�'�� d w ti � � � � H � ARLINGTON � 3550 2875 0 � � Traffic Signal � The carrying capacity of Nrlington and Jackson are 15,000 ADT (average � daily trips). The carrying capacity of Wheelock Parkway is 10,000 average daily trips. Therefore, Figure 4 indicates that the area's major streets can accommodate traffic generated by addiitional development. Installation of a traffic light at the intersection of Wheelock and Jackson would improve � traffic management and provide added safety for area residents. 2. SEWER AND WATER , Municipal sewer service is provided to the study area by a combined storm- sanitary system. The impact of added sanitary flow from new development � is quite small. Impacts of development are greater if stormwater is channeled from rooftops and streets into the sewers. Stormwater from the surrounding area is presently channeled into the Trout � Brook cornbined sewer �ystem. This is causing sewer backup problems in neighborhoods to the south and southwesto Ecologically sensitive site designs for new development will slow stormwater runoff until sewer separation � can be accomplished. � - 7 - � � Eventually the sewers in the entire McDonough and Arlington/Wheelock neighborho will be separated. The city owned ponding site in the study area is an integral part of the separation process. If residential medium or high density development in the study area is permitted, there is a striking opportunity for coordinated improvement of the ponding site. � City water service is available to residential development by utilizing � the three large water mains that lay beneath the streets bounding the study area. � 3. SUPPORTING SOCIAL SERVICES Other factors affecting the development potential of the study area include � public transit, school system capacity and the availability of recreational opportunities. MTC bus service is provided along Jackson Street. This is strictly a north-south route to downtown with connections to the east � at Maryland. The St. Paul Public School System has indicated that they will be able to accommodate additional students housed in the study area. A recreation center near McDonough Homes and the Rice-Arlington playing fields serve the active recreational needs of area residents. Both f acilities are within � mile from the study area. � � � � � � � � � � - $- j � � III. RESIDEN�fIAL nEVELOPMENT AL'�ERNATIV�S � . 7his study area examines two development processes. Options 1, 2 and 3 involve j the construction of public streets to provide access to the houses and property ,n the study area. Land acquisition by the city would be minimal. Future residential development would occur around the existing houses as the market allowed. Option 1 I is the Hoyt Avenue opening. Option 2 involves opening Idaho, Wanda, a portion of Hoyt and a portion of Abell. Option 3 adds sanitary sewer service to the homes along Abell by realigning War�da and providing gradual sewer line grades. , Options 4, 5, 6, 7, and 8 discuss a variety of Planned Unit Development strategies. Option 4 explores single f amily, infill development along private streets. Option 5 � provides 2-4 unit, infil� development in a low density residential development. Option 6 incorporates the development of townhouses in the study area. Option 7 combines townhouses with a high-rise building in a mixed density residential develop- ment with 16.96 units of new housing per acre. Option 8 combines townhouses and I a high-rise building in a mixed density residential development with 24.01 units of new housing per acre. Examination of these alternatives will aid in decisions pertaining to the future use of the land in the study area. Page 14 lists the � advantages of Planned Unit Development. A. PUBLIC IMPROVEMENTS � 1. OPTIONS l, 2, 3 The public improvement strategy is composed uf three options. The parameters ' that limit the options are: a. That street alignments follow current city rights-of-way to the extent � possible; b. That new streets provide legal access to existing houses in the area; and c. That the private market would dictate the type and timing of development � within the area. 2. HOYT NVENUE OPENING, OPTION 1 � The opening of Hoyt would involve the construction of extensive supporting slopes, storm sewers, bituminous surf ace and curbing from Jackson Street , to Abell Street. Sanitary sewer was not included in the improvements. The street would serve t�vo hauses in the interior and six additional lots. i�ssessments would be f�igh and charged to the �mall number� of landowners witl� abutting property. i � � 1 , � _ 9 _ . � Figure 5 Public Improvement Option 1 � �� ,� - - � aCKWaY �� G�.IdeltlQf7k►-@:• WhCC1oGK (� � r � -- -- � / I �\\�\\ �� i� STORM �� 1\ o � -_ SEWER '� ��\ �\ `_. � \\ \ � � c�i �� \ � � � � 1 �.`_ / � \\ �� v�cate0 �� e, � �VQ. � �J� .- � � - � \ \ \ �\�\ � \�\ � d � � �� fJ r � � ` \ � � ---__ � �� C � \�� r � �_ � \ I � ��\ �j /I �' �� I i 11 i.� 7 �� .. � \�� '� � vac�ted \� ✓� nebraska �+o. � 1 • � \ � � \ \ � � � � \ � \ � � \ \ � �\ � � � � ~ \� \\ � �\ � �� }+ ��/ � Q� � � �i i ��\�\ I � \\ � � � � � � Construction Costs: $80,880 e. arlmc�ton ave. Resulting Development Capacity: � 62 Units (3.87 acres) - 10 - � � � Since the street would directly access the long side of six undeveloped 1 properties the imnediate development potential would be limited to six lots. The construction of Wanda to the north and south of Hoyt would be required in order to access additional property. The resulting dead end � street configuration would severely limit circulation and landlock more land than the configurations in Options 2 and 3. Additionally, the cost of adding water and sewer service to Area A in the future would increase the cost of Option 1 even higher. The current RM-1 Zoning would permit � 62 apartment units (capacity) on the 3.87 acres made available for development by this option. � Costs to construct Hoyt Avenue are: $80,880 (street and storm sewer). 3. OPTION 2 , In accessing the total uplands area, Option 2 is procedurally the simplest for the city to implement because it employs the use of existing rights- nf-way and standard assessment practice. Cit,y land would be used for most ' of the street construction. Private land would be condemned only to accommodate a one block 1ength of Nebraska Avenue, the curve at Nebraska and Wanda, and the cul-de-sac at the end of Abell. Sanitary sewer service would be ' provided only to lots along Wanda. Residents around the cul-de-sac would continue to use septic systems to process their sewage. An expensive pump station would be required to provide sewer service above Abell. Option 3 � provides sanitary service to this area at less cost than installing a pump station by varying the street alignment. Stormwater would be collected along Wanda and Hoyt and emptied immediately into the Trout Brook sewer system via the adjacent pond. This plan would provide �nunicipal services � and legal access to 9. 1 acres of land in Are� A but would landlock some lots in the northwest corner. � Future construction cou�d take a variety of forms due to the combined effects of assessments and the multiple large lot ownership pattern in the area. There would be pressure to develop the lots with high density residential � uses and/or subdivide lots in order to make the resulting housing units marketable. These pressures together with the current RM-1 zoning would encourage incremental development and mixed densities over time. RM-1 zoning would allow 146 apartment units (capacity) on th� 9.1 acres made � available f or development by this option. �osts to construct city improvements are: , $271,700 (Street and storm sewer) $ 59 400 (Sanitary sewerj $33-1,�00 1 � 1 ` - li - t Figure 6 Public improvement Option 2 � - -- - � r--�— r--�--� % �� / ! � _ , ,—�,� '�- �� I _ �- , - -----;� �- - I � e,id�h� :� � t whee�ocK�Way ; �� _�1, �--•�---� --._�,��^ �r - kr�---�" i-- — � _ �. _ � � __ � _ �� — � � � . ^ : �;�---- � � ' I \ ---: : y:.� ; --�--_ . , � :. . : � � : � ,� : � " • — � �� L �� STORM �� .� � -� . o ,�, �'� SEWER � \�� \�l -- � �' , � � � _ � ' � ��` �� . " � -=----� SANITARY ,� o-.. 2 \ �. : i ...... `' - �� SE4dER '� � .�._ r � —�--� ' _ � — , �acateU Q .h�yt c7�/e. � � - �� ; ,I �\ � � --r�-"� '' 3 \\` • � ' � , \ —� �� ; '� � ;;; —� ; � '.� � � � � � � �� ,`}�' � ' � �Ic� � W S ' � '� ; � , � �� '—�� .+ � ` --� � �� \ , —�� , ' \� � � �\ : � :�:: 6 7 � � . , ' .. \J �, 0 .. ' ,—� � vacated" , , nebrasica�rve.�a� , � �Q . � `,'�.� �2 9 � 8 `\ ; ��—, , ,; � � � , . • .. : ,: _� �� . , � Y '.•`C �i � � � � ��b�� s Q� \��( j �U � � ��— � � ��"'�'� � Construction Costs: � � `�� 271 ,700 (Street and Storm Sewer) ' '' S 59,400 (Partial Sinitary Sewer) c,7 + � , 5331 , 00 Tota ---- - -- ` � ' '`_ � � -- - -- -� �— Resul i:i n Devel o ment ' ___ �a a e. arlmc�ton ave. 9 p p city: -- — - - ----- --- -� �- 146 Units (9.1 acre�) � - 12 - � Figure 7 � Public Improvement Option 3 , �� . � �rKWav ��i G�.Idc7I1Q � Wh�,lotK P � � Q : : � ----- �� i=� � �� ' STORM �� SEWER �� \�\�' � --- n fl '= �� n �_— \ • • . �_.. ' � \ \ • • � ``�� +'/ o-.......�.... SAN ITARY � 2 ��,� j _ . SEWER ,\.,�_ `� � � � I / : � vacated �� . . C.hoyt ave� � • - J � � � I • / � �� . � \• � \ \ ' � • �\: � �: � : .7 \� : � � \� ' -- -- V � �, � �Q ( > � \�\ i \ � �� • ra • u �� : �� n' �\� � ' • I -- � • . � • I ` • I ::;�• �� : I e �\ • l i II i�. 7 �\: � II „ ��.� II � „ � t. I �' , vacated �� i Q nebra .�a�. � � � \ \ • � � :� `� � :� � � ; � \ \\ •• � . �\ �� ` : � �� : . � � � � I \\ • ` �� .� N Qw�' • v \�`�r�� Construction Costs: , � \�� $325,270 (Street an�� Storm Sewer) � $ 80,740 (Sanitary Sewer) � $406,010 Total � � Resulting Development Capacity: e. arimqton ave. 145 Units (9.0 acres) --_ -- . �— , � � 4. OPTION 3 Option 3 consists of a public street and sewer alignment that would provide � sanitary sewer service to the Abell Street cul-de-sac. As in Option 2, land would have to be acquired to construct one block of Nebraska Avenue and to accommodate the realignment of Wanda. Replatting would be necessary. If the accompanying land condemnation were to be contested, street constructi delays could lead to higher land acquisition costs and assessments. The change in street alignment and the addition of sanitary sewer are the substant�' differences between public improvement Options 2 and 3. New development with this option is also limited to lots that front city streets. Since this plan landlocks the same lots as in Option 2, the amount � of land available for development is about the same (9 acres). As in Option 2 the pressures to develop high density housing and to subdivide lots would be present because of the combined effects of assessments and the multiple � large lot ownership pattern in the area. The current RM-1 zoning would allow 145 apartment units (capacity) on the 9.0 acres made available for development by this option. , Costs to construct city improvements are: $325,270 (Street and storm sewer) � $ 8�. (Sanitary sewer) � B. PLANNED UNIT DEVELOPMENT ' 1. OPTIONS 4, 5, 6, 7, 8 � The second form of development examined in this study �nvolves the use of the Planned Unit Development (PUD). The Zoning Ordinance describes a Planned Unit Development as a process that "provides a desirable environment� and "shall be harmonious to the general surrounding uses permitting flexibili in overall development while insuring adequate safeguards and3standards for public health, safety, convenience, and general welf are". The PUD � process encourages citizen involvement during the formation of development guidelines and site specifications. A planned development that uses design ideas from individuals, city departments, the neighborhood, developer and Planning Commission, can take advantage of the natural features of the � land in a way that will benefit both the neigborhood and the city. While there are many types of PUD's, the ones explored in this study will � be strictly residential. All five PUD options require that the city or private developer acquire a considerable amount of land for the purposes of resale in order to initiate the coordinated development of the land � in the study area. There are advantages for both the developer and the citizens involved if a PUD process is used. These include: � 3 Zoning Ordinance, City of St. Paul, adopted August 28, 1975, p. 48. � - 14 ' � ' � . A variety of housing types can be planned and constructed in a coordinated � manner. . There exists a greater opportunity for innovative architecture and site design without the restrictions of the standard grid pattern, zoning ordinance regulations and wide streets. This opportunity can � f acilitate a high quality development, at lesser cost. . Clustering of structures can increase the amount of common space and recreation area. Pooled financiai resources of the residents can be � • used to provide tennis c�urts, swimming pools and tot lots. With flexible standards for streets, natural land features can be preserved, residential privacy enhanced and vehicle speeds reduced. . Safety of pedestrian movement can be increased through the development � of separate pedestrian walkways. . Underground utility lines improve the appearance of development and are less vulnerable to storms. When placed beneath sidewalks or boulevards, � • streets need not be torn apart to make necessary repairs. Stormwater retention and soil management can be applied to the entire site rather than during incremental development. � . The neighborhood plays a greater role in ihe Planned Unit Development process than in the conventional form of private land development. The site review process and public hearings provide for citizen involvement. � 2. PLANNED UNIT DEVELOPMENT OPTION 4 ' Option 4 consists of a Planned Unit Development of single family infill housing along private streets. The streets would follow the contour of the land and would serve numerous housing nodes (see Figure 8). These � private streets could be narrower than public streets because they serve only the traffic generated internally by the residents. Less rigorous construction standards for the streets provide more land for housing and amenities. Overall development costs would be less than in a plan which � included wider public streets. These savings could be used to fund construction of communal open space, ponds, landscaping and other on-site amenities. � Uevelopment cnsts per unit include: land, $11,450; site improvements (grading, streets, utilities, etc. ), $18,800; building materials and labor, $60,000; engineering and design, $4,200; de�velopment contingency, $2,500; and profit, $14,500. A $11,150 inflation cost reflects expenses associated with a � one year construction delay. Fifty new houses averaging $122,600 each and private streets could be built on 14.26 acres of land. See Figure 14 for cost comparisons between Options 4-8. � Because this option considers adding only single family houses, the density of the development would be less than than of the neighborhood to the north. , With this option relocation of residents are limited. Costs to th� city for municipal services would be minimal since snow plowing and upkeep of the new streets would be privately managed and funded through a homeowners association, Fire and Police protection would be provided by area units. � ' , - 15 - ' Figure 8 Planned Unit Development Option 4 ! Singie Family Scheme � � r � � � � .£::^ � :�. � Development Capacity: 50 Single Family Units (New Construction)� Acres Developed: 12.9 acres Units Per Acre: � 3.87 Units Development Costs Per Unit: � Land $ 11 ,450 Site Improvements $ 18,800 � Bldg. & Labor $ 60,000 Engr. & Design $ 4,200 Contingency $ 2,500 Profit $ 14,500 � Inflation $ 11 ,150 :.... Total Cost Per Unit 122,600 , � - 16 - � � � 3. pLANNED UNIT DEVELOPMENT OPTION 5 � Uptior� 5 consists of a Planned Unit Development of existing single family houses, duplexes, and fourplexes. As in Option 4, this option would limit ur exclude the need to relocate residents from the development area. Fully � developed, this option could provide 1D0 new housing units built on approximately 14 acres of land within the study area. Access to this development can be gained from 2 or 3 points along Jackson � Street. Private streets would be built to follow the contour of the land and serve numerous housing nodes (see Figure 9). As in the other Planned Developments, the private streets could be narrower than public streets � because they serve only the traffic generated internally by the residents. Development costs per unit include: land, $5,750; site improvements, $7,600; � building material and labor, $55,000; engineering and design, $3,300; development contingency, $2,000; and profit, $11,000. A $8,500 inflation cost would reflect expenses incurred with one year construction delay. The total cost per unit is estimated at $93, 150. Municipal costs for Planned Developments � Options 4, 5, 6, 7, 8 may be less than Options 1,2 and 3 because snow plowing and upkeep of the new streets could be privately managed with a Planned Development and paid for through a homeowners association. � 4. PLANNED UNIT DEVELOPMENT OPTION 6 , Option 6 consists of a Planned Unit Development of approximately 165 townhouses. All of the land in Area A, ex_ cept for the lots along Wheelock Parkway, would be acquired by the city and existing structures removed. This is � done in order to f acilitate continuity of design for the entire residential development. Preserving the existing slopes, vegetation and solar orientations would provide a wealth of natural amenities for the new residents. Additionally, site design which includes common spaces for passive recreation permits � somewhat higher densities than would conventional grid pattern lots and streets. The townhouses would be clustered along narrower, private roads similar to those in Option 4 (see Figure 10). iAccess to the area could easily be gained from several points along Jackson and from one point along Wheelock Parkway. Because Wheelock is a Parkway and there is 7ess traffic on Jackson access for any new development of � Area A should be from Jackson Street. Development costs per unit include: land, $12,100; site improvements, 1 $5,100; building materials and labor, $48,000; engineering and design, $2,800; development contingency, $1,700; and profit, $10,500. A $7,800 inflation cost would reflect expenses incurred with one year construction 1 delay. Approximately 165 townhouses averaging $88,000 each could be built on 20.3 acres. , , , - ia - . ' Figure 9 Planned Unit Development Option 5 � .�,�, � : :; 2-4 Unit Scheme ,�„ �j: . � ' . YWII � w • ••. � �II �: I1R1 j ul y I��I� �Y+`�� Y , �� . � , fM� I IUI, �; ..� � �" � �� , �. " . � � I�I .r R:_ � � Sy � �': � � � � Development Capacity: ��;a 100 duplex and 4-plex units g � z (new construction) � Acres Developed: 12.9 Acres ��? Units Per Acre: 7.75 Units � ,. � Development Costs Per Unit: Land $ 5,750 Site Improvements $ 7,600 Bldq. & Labor $55,000 � Engr. & Design $ 3,300 Contingency $ 2,000 Profit $11 ,000 ' Inflation $ 8,500 ��' � � Total Cost Per Unit 93,150 - 18 - , ' � 5. PLANNED UNIT DEVELOPMENT OPTION 7 � Option 7 consists of a mixed density residential Planned Unit Development that would add an additional 346 new housing units to the city. All of , the land in Area A except for the lots along Wheelock Parkway would be acquired by the city and existing structures removed. Approximately 130 units of townhouses could be built below the steep slopes. A high-rise with 12 stories could be built into the east slope using part of the drop 1 in elevation for a two level parking garage. The parking areas for the high-rise could have a separate access to Jackson Street. � Private streets would serve the interior. This is an important access feature since the high-rise demands a more carefully designed circulation pattern to avoid traffic conflicts. The use of separate roads in the interior � and to the high-rise effectively separates the traffic generated by each. The character of the townhouses in this option would be similar to that of Option 5 since use of communal open space and the contour of the land � would continue to be major design features. Orientation of the townhouses would be toward the pond and generally away from the high-rise. ' Development costs per unit include: land, $5,250; site improvements, $2,800; building materials and labor, $49,000; engineering and design, $3, 100; - development contingency, $1,600; and profit, $9,200. A $6,500 inflation cost reflects expenses incurred with one year construction delay. The ' total cost per unit is estimated at $77,500. 7he per unit cost of this option is compatible with average market values of houses in the surrounding area. � 6. PLANNED UNIT DEVELOPMENT OPTION 8 ' Option 8 consists of a mixed density Planned Unit Development that would add an additional 490 new housing units to St. Paul on the 20 acre site. Approximately 130 units of townhouses would compliment a 20 story high- rise building. 1 The mixed density Planned Developments (Options 7 and 8) utilize site planning and design to minimize neighborhood hardships such as increased traffic. , A separate road system for the high-rise building and townhouses separates vehicles generated by each, and minimizes traffic congestion. ' Since the higher density option would produce a higher tax base, an opportunity for accompanying development will be examined here. As was mentioned earlier, the city owns a ponding site within the study area boundaries. Presently, the pond has limited usefulness in slowing the entrance af stormwater into , the combined sewer system. The pond area also functions as a wildlife refuge. Use of the lowlands by the new residents in the study area would increase the amount of open space available fr�r passive recreation. When � the lowland is considered part of the PUD, the ratio of open space to housing units increases by a factor of two. Therefore, an increase in density of new development as proposed in Option 8 could be justified. , • � - 19 - , � From a community design perspective, capi�tal improvements in the lowlands (e.g. , pond deepening and construction of access paths and bridges) should � be concurrent with and compliment any high density residential development. The ponding area improvements will not only benefit the higher density population to the east that would use the new park and recreation opportuniti� but also the surrounding neighborhoods. Improving the pond area could be the first step in the eventual separation of storm and sanitary sewers for the entire district. Development costs per unit include: land, $3,750; site improvements, $2,000; � building materials and labor, $48,000; engineering and design, $3,000; development contingency, $1,600; and profit, $8,750. A $6,300 inflation � cost reflects expenses incurred with one year construction delay. The total cost per unit is estimated at $73,400. The per unit cost of this option is compatible with average market values of houses in the surrounding area. , � � � � 1 i 1 I t 1 1 _ 20 - 1 ' Figure 10 � Planned Unit Development Option 6 Townhouse Scheme � � � �: � � � y': � K.".;.' S � � A � :s3f ).:a�. �� i�... + •'��i�U I!, .. �,�II I��." '• � z, iM , � �� t.. �,. , �t' : � � �; ; �,�� , � �� ' � j . , . . , . . �; ,�; � �;, � ' � . � :;::. 1 Development Capacity: �` 165 Townhouse Units ,; (New Construction) a , � � �� ; Acres Developed: 20.3 Acres �'; �, . �' Units Per Acre: 8.12 Units �.. �: � � �� Development Costs Per Unit: Land $12,100 Site Improvements $ 5,100 ;�' Bldg. & Labor $48,000 , t Engr. & Design $ 2,800 Contingency $ 1 ,700 � ti< Profit $10,500 Inflation $ 7,800 , ` Total Cost Per Unit ,000 �� ; �:s�� . a�,...� , . _ . ' � - 21 - � Figure 11 Pianned Unit Development Option 7 � : Mixed-Use Scheme(16.96 Units per Acre) ,s � ,,. , . . ... .., ._ . _ ;.�.. � a�: a�K r ,z.. �' �/3��: � � � '.< x I • \ � ��'.. �` � � y, 1- � A� �' z :,Y � � j` � � �'�y � p �� "R 'RZ:.. k. �+.� '� � �� 'a�:: � ' � Development Capacity: � � 130 Townhouse Units 216 Hi hrise Units 3 6 Tota Units New Const.) �� ,�� = Acres Developed: 20.4 Acres Units Per Acre: 16.96 Units q� 1�;,T Development Costs Per Unit: Land $ 5,250 ' Site Improvements $ 2,800 Bldg. & Labor $49,000 , Engr. & Design � 3,100 Contingency $ 1 ,600 � .. t�,:� a � �: . � ,� s. :�.. Profit $ 9,250 u , Inflation $ 6,500 , � , . .: <� ��;�?� �a-•:::�:. = r�,. - :k: � :.,_:, Total Cost Per Unit 7 ,500 . x.. . , - 22 - � ' _ Figure 12 � Planned Unit Development Option 8 Mixed-Use Scheme(24.01 Units per Acre) i � .f �,�,: $ ' 1 . 1 � �, I R �� ,. ' ��li 1 � II � , , , «�.� ;: �+; 3: IjI i i III ? � , � . ` �' 3 � � �� . s. z � ' Development Capacity: 130 Townhouse Units 360 Hi hrise Units 490 Tota Units New Construction) , I ��I�I� ��'l�lll �i° Acres Devel oped: 20.4 Acres �f ';, �': : � ' Units Per Acre: 24.01 I �. Development Costs Per Unit: Land $ 3,750 , Site Improvements $ 2,000 Bldg. & Labor $48,000 Engr. & Design $ 3,000 Contingency $ 1,600 ' Profit $ 8,750 Inflation $ 6,300 � Tota Cost er Unit 3, 00 ' , - 23 - , , � FIGURE 13 ZONED DENSITY MATRIX AMOUNT POTENTIAL DEVELOPMENT � POTENTIAL OF LAND # UNITS COST ZONING # UNITS AFFECTED PER ACRE PER UNIT REQUIRED ' OPTION 1 62 3.87 acres 16. 13 NA RM-1 OPTION 2 146 9. 1 acres 16. 13 NA RM-1 � OPTION 3 145 9.0 acres 16. 13 NA RM-1 OPTION 4 50 12.9 acres 3.87 $122,600 PD � OPTION 5 100 12.9 acres 7.75 $ 93, 150 PD � OPTION 6 165 20.3 acres 8. 12 $ 88,000 PD OPTION 7 346 20.4 acres 16.96 $ 77,500 PD , OPTION 8 490 20.4 acres 24.01 $ 73,400 PD � � � . � � ' � , , , - 24- ! _5Z_ � , , r IH � H wA ."Q-. � H OH OH � � O � O N O � O C O c � c x c z c z o z ' W � W J Y�O� W U� R A M '9 'tif '+f N � � y� � � r-� r w " . �o .0 �C r ' M K K K � � 1-�+ � N fpD W A 1p 1p l0 W (7� N N h�' K 7 '.t, � �Q lt0 J N 1-� J A C � � � � � � o o °o o O r � rM- r r rM+ � . n n R � N N N N N fA 3 A � � � N N tJl J 61 A M fA ' � W M M O O O O O (l1 < � � M r��t 11 O � lp 10 O W � R fD W � � a� n M� p � 7 pp �D G� N O �A O tn N W i7 �+ o n a, °' o 0 0 0 o n n � m � w � O O O O O 7 � (CI v a p � � ►�'� �7 , M n o a � � � r � a � � � gT � � M � � w w N w a �� 7e � C a � :a A o 0 0 0 o t�n � � � m � M � a o 0 o a o � W � � � � s � 1 c v � � o 0 � R t+1 �C H M 0 � � A K r r N H N W R H O 1'� F+ N N � W � N tq � O O O O O fD - �. o00 � r M µ O � � °' �' `� r � r -� b 6f p ao �o o r a U O v � ~ o o °o °o °o v K � m � ' �, �n v► tn � a ' !� o+ o� .� a� � o � v n w w m tn N s w O O O O O V 1� O y M • 'N N N N r � n M J .! m �O N M O � W J � W N I11 `�' C R O O O O O N � � , � -9Z- . oa °z ' ' o rzo � a i �� -• v+ o . �-► et 7 X N J� N C n C... �D �� C N rf fD � fD * �F X < K � Ci � O � r+ 4 �F �F t0 y fD fD Q � � � � O M�N� N N � 0 � � . 7 fD e7 ey O��. f� N d tC tY X X�C (D �.Z � n�.�.� ro 7 3 n N tA ^{'A W W f D t M�2 W� O V 1� fD �-'C O� O� S-•N �• pp � yqC� 00� �.�CJ 3 C C Q Z O �O� N C V J v V n m y � G a fD �D O� �G N . � J � , n O m �N N � � � �� O . r* N Z 2--1 C'� O �O� C� O+ o+ .� p *p rt .� , �> >�G O 3 * � C C X � � �.�� n g n o a Z r+ey c e� fp N Gi 7 � , 3xxeto + fD �D fD'�C 3 J � �O �F(D f* N� O N� 7 N N N J *Z O �-iC �GCN 1 -+ N �O � *C vC ps ""m� C C C) a c� ro o J % � o ° J."'J.� °z'-"'i c� �D -�-A O� � � V � Op p �p v�+ N N 1 < Z 'S �F p p O �� a � � � � a � . �oEaa -� � �. a e'r f1 1'1 N � W �O , �7 7 � O � � � � *tD rr�O �--1 C � O N N 7 e�r�Z oi N o N io v' *T ta'�> .."��mr M •c C 3 � O c v c f1 3 N tf O M 00 � v O ._+.��.ry 2�f� T1m y� � .,.� ...I V ' O 0 �0 y�j N W G7 RI � -�7 3 N A * O A C n K � m m .V�I� C � J� �.f�p S V�S C e�tC fD � Oi N v� O by � C� t1+� �tn r r+7 ' 7 � S9 J � � � (D '+ON �r n Ci fD 3 N N � J C �p m'L � v(Xp�.N.. 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ANALYSIS ' � The Trout Brook/Hoyt-Abell Study examines the feasibility of eight development options . Each option outlines how many affordable housing units are created; what the impact on the City's tax base may be;and how the development relates to the neighborhood. � Access and future development can be provided in two distinct ways: (1 ) by constructing public streets (Options 1-3) ; or (2) by con- � structing a Planned Development (Options 4-8) . The traditional approach is to construct public streets along established rights- of-way as discussed in Options 1 , 2, and 3. While this approach is the most expedient and involves little financial support by the , City, it may be accompanied by high assessment costs, subdivision and incremental development. � The Planned Development approach, as discussed in Options 4-8, is rapidly emerging as an alternative means for development of resi- dential areas . Its basic characteristics are: (1 ) the cluster- � ing of housing to oreserve and protect natural amenities; (2) the provision of large areas of usable open space; (3) the reduction of development costs ;and,(4) the maintenance of moderate densities within the planned residential district. , 1 . Public Street Options , Constructing public street Option 1 would provide access to two houses and six lots. Opportunity for development is limited to 62 apartment units of infill housing on 3.87 acres of land. , The total cost to construct Hoyt from Jackson to Abell Street would be $80,880. A limited number of property owners would benefit from Option 1 and these few owners would be required to pay all assessment costs . ' Option 2, which involves constructing portions of East Idaho, Wanda, Hoyt, and Nebraska Streets, opens more land to develop- ' ment than does Option 1 . Maximum development opportunity in Option 2 is limited to 146 apartment units of infill nousing on 9.1 acres of land. Grading, paving, and providing sanitary � sewer improvements would cost an estimated $331 ,000. Sanitary sewer would not be provided to lots along Abell Street in Option 2. � Option 3 is a variation of Option 2 that realigns the Wanda Street right-of-way so that sanitary sewer service can be provided to lots abutting Abell Street. Maximum develop- � ment opportunity in Option 3 is limited to 145 apartment units of infill housing on nine acres of the site. Grading, paving, and providing sanitary sewer improvements would cost an estimated $406,010. � , -27- ' , All three public street options would carry certain � "social costs": 1 . Less opportunity for affordable housing units is created than through moderate density Planned � Developments. 2. Considerably less tax revenue is generated through � moderate density Planned Development as is illustrated by Figure 15 Tax Revenue Projections) . 3. Incremental development is promoted at the expense of ' the neighborhood character of the area. 2. Planned Development Options ' Planned Development Options 4-6 consist of low density developments ranging in density from 3.87 to 8.12 units per � acre. The high cost of land and site improvements associated with low density development drives up total unit costs to $88,000-$122,600 per residence. Staff finds that per unit costs in Options 4, 5 and 6 exceed the sales market for the � area. MarkEtability of "high bracket" housing units are negatively affected by nearby public housing and industrial land uses. � Options 6 through 8 require that as many as 35 area residents be relocated. Obviously these residents have a keen interest , in all deliberations affecting the future development of the area. Proceeding with clearance activities requires current residents to give up their "country acres" in the heart of �he City. These residents may be less than anxious to move so , that the land can be better utilized for somebody else's benefit. Every effort to relocate these current residents in the neighborhood or the Planned Development should be ' pursued. Option 7 consists of a low to moderate density Planned , Development of 346 new housing units with a market value of $77,500 per unit. Option 8 consists of a moderate density Planned Development of 490 new housing units with a market value of $73,400 per unit. Staff finds that in both Options � 7 and 8 average unit costs are comparable with average market values of the surrounding area. Both Planned Develop- ment O�tions 7 and 8 provide striking o�portunities to � coordinate the development in the area by completing construction over a short period of time and availing the developer economies of scale. The developer must, however, assume a large capital investment and proceed w�th public hearings on the Plan before � construction is undertaken. i _28_ � ' ' In summary, the surrounding area will benefit from a high quality Planned Developr�ent. The market values and des�irability of surrounding properties should increase with � a Planned Development. Conversely, incremental dev�elopment does little to enhance nei,ghborhood character and could impair property values . ! Al1 evidence suggests that Options 7 and 8 provide the best opportunity to utilize the site at its highest and best use, , expand the City's tax base, provide part of St. Paul 's need for affordable housing, and enhance the character of the surrounding neighborhood. � B. RECOMMENDATION Staff recommends that a project feasibility analysis of mixed � density options 7 and 8 be undertaken. This analysis should include: a discussion of the Planned Development zone concept as it applies to the specific project area; an indication of � the anticipated level of developer interest; further refinement of development costs ; and finally, a recommendation on whether proceeding ►aith either option 7 or 8 ;� �arranted. I 1 � � 1 ! 1 i � ! i -29_ ' , V. CREDITS � City Council Ron Maddox, Chairman � Public Works George McMahon Committee Victor Tedesco , Planninc� Thomas P. FitzGibbons, Jr. , Chairman � Comnission Liz Anderson Nelsene Karns Clark Armstead David Laneqran Ralph Brown Joseph Levy James Bryan David G. McDonell ! Carolyn Cochrane Joseph Pangel Sam G rais John Schmidt Rev. Glen Hanqgi Gayle Surr�ners � Sister Alberta Huber Janabelle Taylor David Hyduke Adolph T. Tobler Richard Kadrie Robert Van Hoef � A�ninistration James J. Bellus, A. I.C.P. , Director and Depa rtment of Planning and Economic Development � Policy Peggy A. Reichert, Deputy Director, Planning Division Direction Department of Planning and Economic Development James Zdon, Principal Planner, Neighborhood Section, � Planning Division Research Fred S. Haider, Planner-in-charge � and Mark Flinner, Intern, Mankato State University Planning Rick Beeson, Project Manager, Housing Division Dan Brewer, Architect, Development Division � i The District 6 Housing Committee and District 6 Land Use Task Force deserve special credit for � their review, input, and support of this study. � � -30- � i � � TABLE OF CONTENTS � � I. INTRODUCTION 1 A. BACKGROUND 1 � II . PHYSICAL DESCRIPTION OF THE_STUDY AREA 5 A. ORIENTA?ION 5 � B. SOIL CHARACTERISTICS 5 , UPLAN 5 � 2. LOWLAND 6 C. NATIIRAL BARRIERS TO DEVELOPMENT 6 �, D. EXISTING DEVELOPMENT 6 E. SUR�OUNDING DEUELOPMENT : 6 � F. INFRASTRUCTURE AND PUBLIC SERVICES 6 . CITY S7REETS � � 2. SEWER AND WATER 7 3. SUPPORTING SOCIAL SERVICES 8 � III . RESIDENTIAL DEVELOPMENT ALTERNATIVES 9 A. PUBLIC IMPROVEMENTS 9 OPTIONS , 2, 3 9 � 2. HOYT AVENUE OPENING OPTION 1 9 3. OPTION 2 11 4. OPTION 3 14 � B. PLANNED UNIT DEVELOPMENT 14 OPTIONS 4„ 5, 6, 7 14 2. PLANNED UNIT DEVELOPMENT OPTION 4 15 � 3. PLANNED UNIT DEVELOPMENT OPTION 5 17 4. PLANNED UNIT DEVELOPMENT OPTION 6 17 5. PLANNED UNIT DEVELOPMENT OPTION 7 19 � 6. PLANNED UNIT DEVELOPMENT OPTION 8 19 IV. STAFF ANALYSIS AND RECOMMENDATION 27 � A. ANALYSIS 27 �T. PUBLIC STREET OPTIONS 27 � 2. PLANPJED DEVELOP�1EPdT 28 B. RECOMMENDATION 29 � V. CREDITS 30 � � � MAPS AND ILLUSTRATIONS � FIGURE 1 SITE LOCATION � FIGURE 2 NEIGHBORHOOD AREA CONTEXT 3 � FIGURE 3 TROUT BROOK/HOYT-ABELL STUDY AREA 4 FIGURE 4 AVERAGE DAILY TRAFFIC COUNT � FIGURE 5 PUBLIC IMPROVEMENT OPTION 1 �� FIGURE 6 PUBLIC IMPROVEMENT OPTION 2 12 � FIGURE 7 PUBLIC IMPROVEMENT OPTION 3 13 FIGURE 8 PLANNED UNIT DEVELOPMENT OPTION 4 16 � FIGURE 9 PLANNED UNIT DEVELOPMENT OPTION 5 18 FIGURE 10 PLANNED UNIT DEVELOPMENT OPTION 6 21 FIGURE 11 PLANNED UNIT DEVELOPMENT OPTION 7 22 ,� FIGURE 12 PLANNED UNIT DEVELOPMENT OPTION 8 23 FIGURE 13 ZONED DENSITY MATRIX 24 FIGURE 14 COST COMPARISON MATRIX 25 � FIGURE 15 TAX REVENUE PItOJECTIONS 26 � � � � � � � � � � ii � � Figure 1 � Site Location � � � � �� _; �: ��,�� ,� . ,. � .<. ; ° �� r .�.. � � ;� � , � i � � _ � � � �. �. 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Y��.''.�.. �- � F� � � ` � � h� ; �s�; � a�'�::" .�; S>.�bXv`�.:, «,. .�.... ..:. ,. . �. . .. . �r.. ... .,.r ..S. .,. ��'w�.,...: . .�� 'f�:�..;.....:. � � _�_ � � I. INTRODUCTION - � The Trout Brook/Hoyt-Abell Land Development Study was initiated by the City Council to seek ways of providing access to houses and lots south of Wheelock Parkway and � west of Jackson Street. The study investigates �eight possible access and develop- ment strategies. The first three examine options f or public street openings and the anticipated development that would occur with each option. The final four ; examine Planned Unit Developments that provide access to the area and a variety of housing opportunities. A. BACKGROUND ' There are four houses and a mobile home in the study area that lack legal access. They are largely hidden from the surrounding parts of St. Paul by hills and trees. Current access is provided to these houses via a Water Department service road built on a private easement. The Water Department is not willing to pave the road because repairing the water mains that lie beneath it would be more � difficult and costly. The owner of the house located at 45 East Hoyt Avenue had attempted to sell their house. After securing a prospective buyer, mortgaging ar►•angements were � sought. Request for conventional , VA and FHA financing were denied by lending in.stitutions because the house had no legally established public access. A petition for the construction of Hoyt Avenue was submitted by the residents in the immediate area and an engineering report was made following the petition's advised road specifications. � The Public Works Department has determined that construction costs for Hoyt Avenue �NOUId be relatively high. Moreover, the steep grade along Hoyt would require extensive filling which would cause long slopes along the easement. � Estimated costs in January 1980 totalled $67,400 for curbing, bituminous street surf ace, drainage and slope construction. They further pointed out that the road would access only two of four existing houses and the long sides of a few additional lots. The total assessment of $57,800 (estimated in January 1980) would be distributed among eight property owners. The Public Works Departme recommended deferral of the improvements until results of this Planning Study are known. The study, according to the Public Works Department, "should provide � long-term guidance for more coordinated a�d integrated development of this large parcel of rough, undeveloped land." � r of En ineerin Recommendations to the Public Works Corr�nittee), Public � 1 Summa � Wor s Department, ub ic earing, anuary 30, 1980, p. 2. � � _2 � � � Figure 2 � N i hborhood Area Context Ma eg p -�ARP MT - -- - - [�lY ��Y/lf � ..... .::.:.:.:........ ... � ::r:. ...............1.. .. . ... . . .. .;y ..,y. ... :::i.��•.�:: ':. . . :. i::::. .. .. .�.• . ... ':::'::::::: r . 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N .......� ... ....... .. . .. . ..L. .... .. . . .. . .. . �...K........ ::::::::::::::::::::::::. .,•:.•. ... . •::.�. . .�#. .. . :.:.:.:..... . .. :. � .. . ... .. .. .. . . .. . ... 3. � #�,�... •::::::.,................ •:::<•:: .:::::•:::•::•;:�:�:-:::::::;::::� . . :. .. .. . . , . . . •..:: ... .........:•..:�:�:•.�::•�;:•;:�::�::�::::::�::�:�;'� .. .. . . ::. •:. :•.,•::::::::::::. . ... .._.,.. �., .................. - -�-,a�rtn-r�s— � c_ � . .............,... _, .— —, --_.. --= — _ , -- - 1 � —3— � � Figure 3 �Trout Brook/ Hoyt-Abell StudyArea � .:�5 ��.�e�� I,�II�,��az�� F �� i: ��' ��dT'c �;;�' ,..t�' � �� < ax �..;�,.,. . � � �' � � ��-., 3 � ` ��t i� ..2.��.; . �: I ' �.::: � � 6 '�� I��IIi `I 619°,.,��I��II� � � I I�p�� VI�'i��t�G ., . . '. � ,. �' � Iqll .:'. �. 4 � R_2 j ��;, Single Family �. :� Residential � ��' � �:��` ; x:^ a' R��1 ,. ,} � 1 �` � � � Low Densi ty � , , �� .. _ � � � Multi-Family � �� a .:i; " ' i�� Residential " �i i ��,,i, a: '� j�y' I-1 � �� `. Light Industrial .� � � ; � . . ' ':� ; ��,; �� ..� . , ^ � � -4- � � � I1. PHYSiCAL ��ESCRIt'��ION OF THE STUDY AREA � : � A. ORIENTATION The study area is located approximately 2 mile west 'of I-35E and 2Z miles north of downtown St. Paul. It consists of an area bounded on the north by Wheelock , Parkway, on the west by the Soo Line Railroad tracks, on the south by Arlington Avenue and on the east by Jackson Street. The general terrain can be described as sloping away from Wheelock Parkwa,� and Jackson Street toward a Water Department � service road. Some slopes are steep ( 12-24%) but most are moderate (less than 10%) and are buildable. The steepest slopes form a northern and eastern rim in the study area along Jackson and Wheelock and provide natural land buffers for surrounding neighborhoods. � Just west of the Water Department service road is a city owned ponding area which experiences seasonal and temporal changes in water level. This lowland � extends to the railroad tracks on the west and will be considered separately because of its inappropriateness for housing develupment and because of its value in the system of water ponding and purification. ! On the western boundary of the ponding area is the Soo Line tracks right-of- way. The tracks are currently used twice daily, one train to the north and another to the south. Use is not extensive and thus is unlikely to cause serious 1 disturbances to residents in the Trout �rook/Hoyt-Abell study area. Views of the city skyline from the high ground are to the south and southwest � across the ponding area. The south facing slopes also provide solar energy collecting potential to this site. Use of such energy features is highly encouraged by the Comprehensive Plan of the City of St. Paul for existing and future development. � B. SOIL CHARACTERISTICS 1 . UPLAND � The soil type to the east of the Water Department service road is Chetek- Urban mixed with gravel deposits and fill. Thi� sail has several negative � properties requiring noting: a. The soil drains rapidly and, therefore, can slow revegetation on steeper � slopes; b. When exposed, this soil is subject to severe erosion; and c. The soil has poor sidewall stability requiring special precautions during excavation. � Despite these apparent drawbacks, the soil makes a very good base2for construction because of iis low frost-�ction potential and �ood soil strength. � � 2 Inventory and Evaluation of Soils for Urban Redevelopment Moechnig, Howard J., District Conservationist, USDA, June 16, 1976, pp 7, 8. � - � - � � Z. LOWLAND To the west of the Water Department service road is a wetland. Its Udorthent � soils provide weak ground support for structures and its wet substratum indicates poor drainage, high water tables and severe frost-action potential. � These conditions require that on-site inspections precede any construction activity. C. NATURAL BARRIERS TO DEVELOPMENT � Construction in the sloping and wooded parts of the study area requires special precautions to improve land and stormwater management. Streets built over � steep slopes ignore the need to preserve developable land since such roads require extensive land cuts and fills. Site plans for building on slopes over 12% should detail erosion control measures for sidewall excavations during � construction, and drainage and replanting after construction. The existing trees and ground cover help to slow the speed of runoff and should be preserved whenever practical. Landscaped depressions can be incorporated into the design of more intensely developed areas in order to slow stormwater runoff. � 0. EXISTING DEVELOPMENT Existing structures and larad within the study area are less varied than those � immediately surrounding the site. Within the study area there are three concen- trations of houses. The first fronts the south side of Wheelock Parkway. A second fronts the west side of Jackson Street where the houses rest on the � upper ridge of the sloping land. A church and a residential home for retarded adults are also located along Jackson Street. The third concentration of houses is in the interior and could be described as "characteristically rural". � E. SURROUNDING DEVELOPMENT Land use in the immediate impact area is widely varied. To the east is the � McDonough Housing development. McDonough provides housing for approximately 2, 100 people in its 585 units (844 adults, 1,252 children under age 18). Maximum allowable units per acre with the current RM-1 zoning is 16. 13 but densities � are less with the McDonough development. Single family residences are prevalent north of Wheelock Parkway. The Soo Line Railroad tracks, apartment buildings, and the Rice-Arlington recreation fields make up the western border. A Port � Authority Industrial Park (Terminal Warehouse, St. Paul Concrete) and the Rice Street Branch Post Office border on the south. F. INFRASTRUCTURE AND PUBLIC SERVICES � Before all costs of developing an area can be estimated, the infrastructure and present municipal service levels require investigation. Such f actors as � street capacity, sanitary and storm sewer capacities, the location and size of water mains, bus access, and park and recreational facilities help to determine the development capacity of the land. � I _ 6 - � � � � l. CITY STREETS The city streets that border the study area are designed to carry vehicles from neighborhood streets to arterials. The Comprehensive Plan of St. I Paul designates the streets that border the study area as collectors. They are designed ta carry vehicles from neighborhood streets to arterials. The daily average traffic counts are illustrated below. � Figure 4 � Study Area Average Daily Traffic Counts � 2875 I 4225 WHEELOCK PARKWAY 4600 0 � ' U ::�TUDY�,AREAc;�:��;:;:;:::;: d w ti � - �n c•.� � H � � ARLINGTON I 3550 2875 0 � � Traf f ic S ignal � The carrying capacity of Hrlington and Jackson are 15,000 ADT (average � daily trips). The carrying capacity of Wheelock Parkway is 10,000 average daily trips. Therefore, Figure 4 indicates that the area's major streets can accommodate traffic generated by additional development. Installation of a traffic light at the intersection of Wheelock and Jackson would improve � traffic management and provide added safety for area residents. 2. SEWER AND WATER � Municipal sewer service is provided to the study area by a combined storm- sanitary system. The impact of added sanitary flow from new development � is quite small. Impacts of development are greater if stormwater is channeled from rooftops and streets into the sewers� Stormwater• from the surrounding area is presently channeled into the Trout 1 Brook cornbined sewer system. This is causing sewer backup problems in neighborhoods to the south and southwesto Ecologically sensitive site designs for new development will slow stormwater runoff until sewer separation � can be accomplished. � _ � _ � � Eventually the sewers in the entire McDonough and Arlington/Wheelock neighborho will be separated. The city owned ponding site in the study area is an integral part of the separation process. If residential medium or high density development in the study area is permitted, there is a striking opportunity for coordinated improvement of the ponding site. � City water service is available to residential development by utilizing the three large water mains that lay beneath the streets bounding the study area. � 3. SUPPORTING SOCIAL SERVICES Other factors affecting the development potential of the study area include � public transit, school system capacity and the availability of recreational opportunities. MTC bus service is provided along Jackson Street. This � is strictly a north-south route to downtown with connections to the east at Maryland. The St. Paul Public School System has indicated that they will be able to accommodate additional students housed in the study area. A recreation center near McDonough Homes and the Rice-Arlington playing fields serve the active recreational needs of area residents. Both facilities are within � mile from the study area. � � � � � i � � i � 1 _ $_ � � � III, RESIDEN7IAL �EVELOPMENT AL'ERNATIV!:S � • I This study area examines two development processes. Options 1, 2 and 3 involve the construction of public streets to provide access to the houses and property �n the study area. Land acquisition by the city would be minimal. Future residential development would occur around the existing houses as the market allowed. Option 1 � is the Hoyt Avenue opening. Option 2 involves opening Idaho, Wanda, a portion of Hoyt and a portion of Abell. Option 3 adds sanitary sewer service to the homes along Abell by realigning Wa�da and providing gradual sewer line grades. � Options 4, 5, 6, 7, and 8 discuss a variety of Planned Unit Development strategies. - Option 4 explores single family, infill development along private streets. Option 5 provides 2-4 unit, infill development in a low density res�dential development. � Option 6 incorporates the development of townhouses in the study area. Option 7 combines townhouses with a high-rise building in a mixed density residential develop- ment with 16.96 units of new housing per acre. Option 8 combines townhouses and a high-rise building in a mixed density residential development with 24.01 units of new housing per acre. Examination of these alternatives will aid in decisions pertaining to the future use of the land in the study area. Page 14 lists the � advantages of Planned Unit Development. A. PUBLIC IMPROVEMENTS � 1. OPTIONS 1, z, 3 The public improvement strategy is composed �f three options. The parameters � that limit the options are: a. That street alignments fdllow current city rights-of-way to the extent � possible; b. That new streets provide legal access to �xisting houses in the area; and c. That the private market would dictate the type and timing of development ' within the area. �. HOYT NVENU� OPENING, OPTION 1 � The opening of Hoyt would involve the construction of extensive supporting slopes, storm sewers, bituminous surf ace and curbing from Jackson Street to Abell Street. Sanitary sewer was nnt included in the improvements. � The street would serve two hauses in the interior and six additional lots. Hssessments would be high and charged to the �mall number• of landowners with abutting property_ I ` � 1 � - g _ � Figure 5 Public Improvement Option 1 � �� arKw�y ��i � wheelocK P �i e.�C�C7f1Q�.�1�� ---- � �� _� � �\\� �\ ` ` �� STORM �� 1\ o -_ SEWER � \\� \\ `� � \\ \ � J A \�� / � L \�\��- �/ � vacated �� C. O c'�Ve. , J � I / \ ` ' � \ \ \ �\\� � \�� v � � \�\ � ! � � � � � � ----- v \�� u \\ r 3 �� > �� I -- � \ I ��\ �j !I s' �{ �\ I� 11 :.: '?; 7 �\ � I I .• � �\\I1 �� I vacated � � � nebraska .�sc. \ \ � � � � � � � � \ � � \ \ � � � �\ � � � � .. �� \\ � \\ � �� 1.+ ��'�� d ' � I i �\\_� I � \\ � � � ' � I Construction Costs: $80,880 e. arlmqton ave. Resulting Development Capacity: � 62 Units (3.87 acres) - 10 - , � , Since the street would directly access the long side of six undeveloped � properties the immediate development potential would be limited to six lots. The construction of Wanda to the north and south of Hoyt would be required in order to access additional property. The resulting dead end 1 street configuration would severely limit circulation and landlock more land than the configurations in Options 2 and 3. Additionally, the cost of adding water and sewer service to Area A in the future would increase the cost of Option 1 even higher. The current RM-1 zoning would permit � 62 apartment units (capacity) on the 3.87 acres made available for development by this option. � Costs to construct Hoyt Nvenue are: $80,880 (street and storm sewer). 3. OPTION 2 ' In accessing the total uplands area, Option 2 is procedurally the simplest for the city to implement because it employs the use of existing rights- uf-way and standard assessment practice. City land would be used for most � of the street construction. Private land would be condemned only to accommodate a one block 7ength of Nebraska Avenue, the curve at Nebr•aska and Wanda, and the cul-de-sac at the end of Abell. Sanitary sewer service would be ' provided only to lots along Wanda. Residents around the cul-de-sac would continue to use septic systems to process their sewage. An expensive pump station would be required to provide sewer service above Abell. Option 3 � provides sanitary service to this area at less cost than installing a pump station by varying the street alignment. Stormwater would be collected along Wanda and Hoyt and emptied immediately into the Trout Brook sewer system via the adjacent pond. This plan would provide municipal services � and legal access to 9. 1 acres of land in Are� A but would landlock some lots in the northwest corner. � Future construction cou�d take a variety of farms due to the combined effects of assessments and the multip�e large lot owr�ership pattern in the area. There would be pressure to develop the lots with high density residential , uses and/or subdivide lots in order to make the resulting housing units marketable. These pressures together with the current RM-1 zoning would encourage iricremental derrelopment and mixed densities over time. RM-1 zoning would allow 146 apartment units (capacity) on the 9.1 acres made � available forr development by this option. t;osts to construct city improvements ar�: t $271,�00 (Street and storm sewer) $ 59 400 (Sanitary sewerj $3�T,�00 � � � , - li -- � Figure 6 Public Improvement Option 2 � � --��--ji �� - � ; � - -- - , ��- , , __�� '�' '� j/ � , -__�r ✓ � rkWyl ` � I �� , C.' IC�c'�f1Q .� � � , -------� ------\� --�--t�-�'�-,r-�� - - ' b--�-,� '-- - � _ � Q - ', , _ �� -- : —�� I ^ : �.',------ � � I : , —�:-�-— � i � „ - : ; ; I \\" - � �—� ' � STORM ' ��`�� 1 --. T o - `�`_� �_ �-----►� S EWER � �� l �-- � � �"`"_ '� ' �-. . u �� : '� � �` � • - SANITARY � . � �� v ,. � . _ � a........'.... � 2 : .�.- -�--, SEWER _ -- � --� ��:�t�� . o .hoyt ave_ , , �� , a \ � � � � � _ 3 ` \\\� ' � � � . � �-� ,;; =-; �--� o �,� 'D � ! j ' � �� ,�� M 1� \ � �.�.r�� ' . j > � � ��\\ �„ \ � ,--_� � A � � �\ i \ �,) �� i � 6 � �\\ � ; ' � .. �� .. ' , vacated � nebraska�.�ac. , Q � . '�---- `� �l 9 8 , �� .^2 � � , ; � � �--� � , , . , � �� , �� - . L Y ' :� � a.•i . � ��b �� ` � � . �\\sy � � � � �\� i �. � � d � ��,�' ��— �.. �� . � �;•�,� � Construction Costs: --"� --��-- ,\� ' S271 ,700 (Street and Storm Sewer) � `+ ; S 59,400 (Partial Sjnitary Sewer) cJ �� 5331 ,100 Tota � -- - — - � � —"- - Resultin Develo ment �a a ' - -- _ ._ _ e. arlinc�ton ave. g p p city: - ------ � �- 146 Units (9.1 acre�) i _ ,2 _ � Figure 7 � Public Improvement Option 3 j �� `� � ' ''� e,id�nc� - whee►ocK P�rKway � :� i ' Q : : � ----- � \\ /I I ,, `` ' STORM �� --�--►-- �� SEWER \\ �`\,�, {l --- n fl '= �� 7 �� ' '-- � . . � � \\ • \ \ • • ; �\� �� T� o........�.... SEWERARY � 2 � � - � �� - 'i - ' , � . ' vacated �� . . ' e.hoyt ave_ � � - J � � \ I • �� \ `� \\�: � \ • \ • ��i \ � • \ � O \� i � M \� i � __ __ A� � �. O" ( � � \�� : \ �+ \\ i V \� �: ,� � �� ' I � \ � � � -- •;�. ��\'. I� s' �\� I i 11 S.: �\l i I I ;.. .. 7 ��•� ll � " \� r�� vacate� �\ �. nebra �a�. � �Q� � � � � � � � �i \\ � �i \ � :� � � \\ ` •• \ � � • d \\� •: ` \� ` • �\� �� fr � I \\\� ` J � �� ,� � Q� \�`'�{ � ��'• Construction Costs: � '� \\ . � $325,270 (Street ana Storm Sewer) � $ 80,740 (Sanitary Sewer) ' $406,010 Total � _ � JC Resulting Development Capacity: e. arlinc�to� ave. 145 Un i ts (9.0 acres) ---- - ----- . �— ' � , 4. OPTION 3 Option 3 consists of a public street and sewer alignment that would provide i sanitary sewer service to the Abell Street cul-de-sac. As in Option 2, land would have to be acquired to construct one block of Nebraska Avenue and to accommodate the realignment of Wanda. Replatting would be necessary. If the accompanying land condemnation were to be contested, street constructi delays could lead to higher land acquisition costs and assessments. The change in street alignment and the addition of sanitary sewer are the substant�l differences between public improvement Options 2 and 3. New development with this option is also limited to lots that front city streets. Since this plan landlocks the same lots as in Option 2, the amount � of land available for development is about the same (9 acres). As in Option 2 the pressures to develop high density housing and to subdivide lots would be present because of the combined effects of assessments and the multiple � large lot ownership pattern in the area. The current RM-1 zoning would allow 145 apartment units (capacity) on the 9.0 acres made available for development by this option. . � Costs to construct city improvements are. $325,270 (Street and storm sewer) , $ 80 740 (Sanitary sewer) $�6,�1b B. PLANNED UNIT DEVELOPMENT � l. OPTIONS 4, 5, 6, 7, 8 The second form of development examined in this study involves the use � of the Planned Unit Development (PUD). The Zoning Ordinance describes a Planned Unit Development as a process that "provides a desirable environment� and "shall be harmonious to the general surrounding uses permitting flexibili in overall development while insuring adequate safeguards and3standards for public health, safety, convenience, and general welf are". The PUD � process encourages citizen involvement during the formation of development guidelines and site specifications. A planned development that uses design ideas from individuals, city departments, the neighborhood, developer and Planning Commission, can take advantage of the natural features of the , land in a way that will benefit both the neigborhood and the city. _ While there are many types of PUD's, the ones explored in this study will � be strictly residential. Al1 five PUD options require that the city or private developer acquire a considerable amount of land for the purposes of resale in order to initiate the coordinated development of the land ' in the study area. There are advantages for both the developer and the citizens involved if a PUD process is used. These include: � 3 Zoning Ordinance, City of St. Paul, adopted August 28, 1975, p. 48. � ' 14 - , � ' . A variety of housing types can be planned and constructed in a coordinated 1 manner. . There exists a greater opportunity for innovative architecture and site design without the restrictions of the standard grid pattern, zoning ordinance regulations and wide streets. This opport�nity can � • f acilitate a high quality development, at lesser cost. Clustering of structures can increase the amount of common space and recreation area. Pooled financial resources of the residents can be � . used to provide tennis courts, swimming pools and tot lots. With flexible standards for streets, natural land features can be preserved, residential privacy enhanced and vehicle speeds reduced. � . Safety of pedestrian movement can be increased through the development of separate pedestrian walkways. . Underground utility lines improve the appearance of development and are less vulnerable to storms. When placed beneath sidewalks or boulevards, , • streets need not be torn apart to make necessary repairs. Stormwater retention and soil management can be applied to the entire site rather than during incremental development. � . The neighborhood plays a greater role in ti�e Planned Unit Development process than in the conventional form of private land development. The site review process and public hearings provide for citizen involvement. ' 2. PLANNED UNIT DEVELOPMENT OPTION 4 � dption 4 consists of a Planned Unit Development of single family infill housing along private streets. The streets would follow the contour of the land ar�d would serve numerous housing nodes (see Figure 8). These � private streets could fbe narrower than public streets because they serve only the traffic generated internally by the residents. Less rigorous construction standards for the streets provide more land for housing and amenities. Overall development costs would be less than in a plan which � included wider public streets. These savings could be used to fund construction of communal open space, ponds, landscaping and other on-site amenities. 1 Development costs per unit include: land, $11,450; site improvements (grading, streets, utilities, etc. ), $18,800; building materials and labor, $60,000; engineering and design, $4,200; development contingency, $2,500; and profit, � $14,500. A $11, 150 inflation cost reflects expenses associated with a one year construction delay. Fifty new houses averaging $122,600 each � and private streets could be built on 14.26 acres of land. See Figure 14 for cost comparisons between Options 4-8. tBecause this option considers adding only single f amily houses, the density vf the development would be less than than of the neighborhood to the north. � With this option relocation of residents are limited. Costs to thE city for municipai services would be minimal since snow plowing and upkeep of the new streets would be privately managed and funded through a homeowners association� Fire and Police protection would be provided by area units. � � ' ° IJ � Figure 8 Planned Unit Development Option 4 # Single Family Scheme i � 1 f 1 i �:� � � � .:�:a. .,�.� � ;y.. �. ��:.. e\' �,� Development Capacity: � 50 Single Family Units (New Construction)� Acres Developed: 12.9 acres Units Per Acre: � 3.87 Units Development Costs Per Unit: x Land $ 11 ,450 Site Improvements $ 18,800 � Bldg. & Labor $ 60,000 Engr. & Design $ 4,200 Contingency $ 2,500 Profit $ 14,500 � �;1,, Inflation $ 11 ,150 ` �� .. Total Cost Per Unit 122,600 ��;� 1 1 - 16 - � � , 3. NLANNEO UNIT DEVELOPMENT OPTION 5 l �ption 5 cons7sts of a Planr�ed Unit Development of existing single family houses, duplexes, and f ourplexes. As in Option 4, this option would limit ur exclude the need to relocate residents from the development area. Fully ' developed, this option could provide 1D0 new housing units built on approximately 14 acres of land within the study area. Access to this development can be gained from 2 or 3 points along Jackson � Street. Private streets would be built to follow the contour of the land and serve numerous housing nodes (see Figure 9). As in the other Planned Developments, the private streets could be narrower than public streets , because they serve only the traffic generated internally by the residents. Development costs per unit include: land, $5,750; site improvements, $7,600; I building material and labor, $55,000; engineering and design, $3,300; development contingency, $2,000; and profit, $11,000. A $8,500 inflation cost would reflect expenses incurred with one year construction delay. The total � cost per unit is estimated at $93, 150. Municipal costs for Planned Developments Options 4, 5, 6, 7, 8 may be less than Options 1 ,2 and 3 because snow plowing and upkeep of the new streets could be privately managed with a Planned Development and paid for through a homeowners association. I4. PLANNED UNIT dEVELOPMENT OPTION 6 � Option 6 consists of a Planned Unit Development of approximately 165 townhouses. All of the land in Area A, except for the lots along Wheelock Parkway, would be acquired by the city and existing structures removed. This is � done in order to f acilitate continuity of design for the entire residential development. Preserving the existing slopes, vegetation and solar orientations would provide a wealth of natural amenities for the new residents. Additionally, site design which includes common spaces for passive recreation permits 1 somewhat higher densities than would conventional grid pattern lots and streets. The townhouses would be clustered along narrower, private roads similar to those in Option 4 (see Figure 10). , Access to the area could easily be gained from several points along Jackson and from one point along Wheelock Parkway. Because Wheelock is a Parkway and there is less traffic on Jackson access for any new development of ' Area A should be from Jackson Street. Development costs per unit include: land, $12,100; site improvements, � $5,100; building materials and labor, $48,000; engineering and design, $2,800; development contingency, $1,700; and profit, $109500. A $7,800 inflation cost would reflect expenses incurred with one year construction � delay. Approximately 165 townhouses averaging $88,000 each could be built on 20.3 acres. � � � - 17 - . � Figure 9 Planned Unit Development Option 5 � �. �: 2-4 Unit Scheme � � ,� � ,k�. � �a� � � � ,�„��I �s� iu: �� .� �I�I �i��. � �r�j � `� �u", ��a�IIII�II�' � s�� `�'cy ' '�1 � � � �' , I .�� Development Capacity: ' ;� � < 100 duplex and 4-plex units ' (new construction) � Acres Developed: 12.9 Acres ~��`` Units Per Acre: 7.75 Units � Development Costs Per Unit: � � Land $ 5,750 Site Improvements $ 7,600 Bldq. & Labor $55,000 � Engr. & Design $ 3,300 Contingency $ 2,000 Profit $11 ,000 � � Inflation $ 8,500 ;�� . Total Cost Per Unit 93,150 - 18 - , , ' 5. PLANNED UNIT DEVELOPMENT OPTION 7 � Option 7 consists of a mixed density residential Planned Unit Development that would add an additional 346 new housing units to the city. All of ' the land in Area A except for the lots along Wheelock Parkway would be acquired by the city and existing structures removed. Approximately 130 units of townhouses could be built below the steep slopes. A high-rise with 12 stories could be built into the east slope using part of the drop , in elevation for a two level parking garage. The parking areas for the high-rise could have a separate access to Jackson Street. � Private streets would serve the interior. This is an important access feature since the high-rise demands a more carefully designed circulation pattern to avoid traffic conflicts. The use of separate roads in the interior Iand to the high-rise effectively separates the traffic generated by each. The character of the townhouses in this option would be similar to that of Option 5 since use of communal open space and the contour of the land � would continue to be major design features. Orientation of the townhouses would be toward the pond and generally away from the high-rise. � Development costs per unit include: land, $5,250; site improvements, $2,800; building materials and labor, $49,000; engineering and design, $3,100; development contingency, $1,600; and profit, $9,200. A $6,500 inflation cost reflects expenses incurred with one year construction delay. The � tatal cost per unit is estimated at $77,500. 7he per unit cost of this option is compatible with average market values of houses in the surrounding area. , 6. PLANNED UNIT DEVELOPMENT OPTION 8 ' Option 8 consists of � mixed density Planned Unit Development that would add an additional 490 new housing units to St. Paul on the 20 acre site. Approximately 130 units of townhouses would compliment a 20 story high- rise building. � The mixed density Planned Developments (Options 7 and 8) utilize site planning and design to minimize neighborhood hardships such as increased traffic. � A separate road system for the high-rise building and townhouses separates vehicles generated by each, and minimizes traffic congestion. � Since the higher density option would produce a higher tax base, an opportunity for accompanying development will be examined here. As was mentioned earlier, the city owns a ponding site within the study area boundaries. Presently, the pond has limited usefulness in slowing the entrance af stormwater into , the combined sewer system. The pond area also functions as a wildlife ref uge. Use of the lowlands by the new residents in the study area would increase the amount of open space �vailable for passive recreation. When � the lowland is considered part of the PUD, the ratio of open space to housing units increases by a factor of two. Therefore, an increase in density of new development as proposed in Option 8 could be justified. � � - 19 - , � From a community design perspective, capital improvements in the lowlands (e.g. , pond deepening and construction of access paths and bridges) should � be concurrent with and compliment any high density residential development. The ponding area improvements will not only benefit the higher density population to the east that would use the new park and recreation opportuniti� but also the surrounding neighborhoods. Improving the pond area could be the first step in the eventual separation of storm and sanitary sewers for the entire district. Development costs per unit include: land, $3,750; site improvements, $2,000; � building materials and labor, $48,000; engineering and design, $3,000; development contingency, $1,600; and profit, $8,750. A $6,300 inflation � cost reflects expenses incurred with one year construction delay. The total cost per unit is estimated at $73,400. The per unit cost of this option is compatible with average market values of houses in the surrounding ' area. � � � 1 i I 1 1 1 1 � _ 2� _ � � Figure 10 � Planned Unit Development Option 6 � .�..- Townhouse Scheme � � �� : � � �. ' , � � � � '� � ; � �'�I� i` Ip i i: ` '!I Ih; ` p �. � �lU �• � 1 x �: i' . ��,. ,,,, r � :�� : � F�: :� ' i' 'u�il�. �.;� ��i,� � � � ' t � � �: �' � a_� ••,. a 3= � � �';� �:�:' Ei s , �: ' Development Capacity: �.. 165 Townhouse Units �:. (New Construction) � � ` �I��I I�@�`� Acres Developed: 20.3 Acres �, '� � ; . ;, �, ' .. r. �,; u; �: Units Per Acre: 8.12 Units .. � :.. _;� � ; Development Costs Per Unit: �, Land $12,100 � Site Improvements $ 5,100 Bldg. & Labor $48,000 , �:: Engr. & Design $ 2,800 Contingency $ 1 ,700 ' x °� Profit $10,500 a , .. . .;, , . . .. .. ,. ... ,_ �.>. . . ,: . > Inflation $ 7,800 ` ' ' Tota Cost Per Unit ,000 ? �, .;; ::��, : . ' 1 - 21 - � Figure 11 Planned Unit Development Option 7 � ., . .. _. ... .. _. Mixed-Use Scheme(16.96 Units per Acre) ; . .:� ..:: �. �� . . _. �� . �# � :� , r � ,� :E.. � ,.,: �F � � <> b Fac:. �. �� ' � 4 S',a., S � � � } � � ( t' C dii� 3y � 4i, C �.a � ��'. 3 , �� a� i 2 �>� T Development Capacity: 130 Townhouse Units � 3 � 216 Hi9hrise Units 346 Tota Units New Const.) �� ,., : Acres Developed: 20.4 Acres .�.:� � Units Per Acre: 16.96 Units ��z �Development Costs Per Unit: Land $ 5,250 Site Improvements $ 2,800 Bldg. & Labor $49,000 , Engr. & Design �a 3,100 �� Contingency $ 1 ,600 � ��:�� .� Profit $ 9,250 . � Inflation $ 6,500 � �...�.i*. .::.:,�`�... . .�. � '�:A��L �:�,,. �� Tota Cost Per Unit ,500 � - 22 - , ' _ Figure 12 � Planned Unit Development Option 8 Mixed-Use Scheme(24.01 Units per Acre) I ,, ��,. � z 1 , .. 1 .: 1 � �, ,� 1 �, . 1 �°, � �� . .:; ' ,�. `s� } .�.s�'" � � ,� i � a�'. 1 � � �i;. � , Development Capacity: 130 Townhouse Units 360 Hi9hrise Units � 490 Tota Units New Construction) '�� I �lil�� ; Acres Developed: 20.4 Acres A � Units Per Acre: 24.01 � �. �. Development Costs Per Unit: Land $ 3,750 1 Site Improvements $ 2,000 Bldg. & Labor $48,000 Engr. & Design $ 3,000 Contingency $ 1 ,600 � Profit $ 8,750 �" Inflation $ 6,300 ' - Total Cost Per Unit 3,4 0 � , - 23 - � � FIGURE 13 ZONED DENSITY MATRIX AMOUN T POTENTIAL DEVELOPMENT , POTENTIAL OF LAND # UNITS COST ZONING # UNITS AFFECTED PER ACRE PER UNIT REQUIRED � OPTION 1 62 3.87 acres 16.13 NA RM-1 OPTION 2 146 9.1 acres 16. 13 NA RM-1 , OPTION 3 145 9.0 acres 16. 13 NA RM-1 OPTION 4 50 12.9 acres 3.87 $122,600 PD ' OPTION 5 100 12.9 acres 7.75 $ 93,150 PD , OPTION 6 165 20.3 acres 8.12 $ 88,000 PD OPTION 7 346 20.4 acres 16.96 $ 77,500 PD � OPTION 8 490 20.4 acres 24.01 $ 73,400 PD r � � . � � � � � 1 1 - 24- j , _�Z_ ' � _� , � H A � O~+ H OH OH I� � O � O NO � O CO 7 � 7 � 7 � 7 z p"z � M- � Y. v �p� � U1 � �P h7 �1 ^� ry1 � v v � v �1C+- F'� F'� W � C C C G H N +n � f+ fpD Ar , ry �y �p �p W N� N N �' K 7 5 Cf '�J M N V� O t�i� tAi� 7 f'1 �' . � � A � O C� O O O � y0 • FT M M M A � 10 fp N fC m a w m H N N V� H N R7 A � � � N N lJ� J 61 A M N � 0 o r• � p M M O O O O O 01 �9p � � A � O �N rt a m K m , n � m � n M O �G 7 m � OD tNi� O �A O N N 7 W N W ir7{ �+ � M � 7 O O O O O 7 � n v � �` y , �, ° o a � � 7 Cg 0. � 7� 0 � � p � ! � M � � W W N W A ��C 7C � ' C W C � N :a A O O o 0 o N f�G � [��* � � o n a o 0 o c+ o �� ,� m m � °' a s � � c v a 0� 7 � �' " � R N1 �C K 0 ^ � A l"r ►+ � fA N N W R H F+ N N � .M'' 01 fA �+J � O O O O O 1G � a O O O � , '+1 W p� 7 7 � �y N N N N N � a m �v o � a v~i o M � r o o °o °o °o v rµr � a � {/� y y fA N M �y r -�. a � p� p� � W r r rn O 1� � A W N mp U Ir � N O O O O O O c o � �N N N H � � A v J �1 � �0 N K O '•L W �I � W N N C R O O O O O K y � , , -9Z- ' � n� o� i O !D 7 N 'T �� j � N O . 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V1 N N � OD J D J cn w o �0�� zom O 0 � � O O �N �' I�m � � s O O � I -i � � e+ fD � � � � � � G� W N W V+ N fD c*is O O O� N W O� � �, �m r � � � � C V C � ""f+1 2 � � � c7+ �..�.�,..n Z O m � O O '��^'• v 3� * 0 O p�' y' 2 -i t � � v W � GI AN OC�I � tD '* �DO I�mr w � Z O• --1<D ' w c° c �ca I^, zl po J c�n o�+ �,�"'� � zom � •n i N � � "pv�i fp �xm�� • � O � � I -� � ' � IV. STAFF ANALYSis ANU RECOMMEPJUA�fION , A. ANALYSIS ' � The Trout Brook/Hoyt-Abell Study examines the feasibility of eight development options . Each option outlines how many affordable housing units are created; what the impact on the City's tax base may be;and how the development relates to the neighborhood. � Access and future development can be provided in two distinct ways: (1 ) by constructing public streets (Options 1-3) ; or (2) by con- � structing a Planned Development (Options 4-8) . The traditional approach is to construct public streets along established rights- of-way as discussed in Options 1 , 2, and 3. While this approach , is the most expedient and involves little financial support by the City, it may be accompanied by high assessment costs, subdivision and incremental development. � The Planned Development approach, as discussed in Options 4-8, is rapidly emerging as an alternative means for development of resi- dential areas . Its basic characteristics are: (1 ) the cluster- � ing of housing to preserve and protect natural amenities; (2) the provision of large areas of usable open space; (3) the reduction of development costs ;and,(4) the maintenance of moderate densities within the planned residential district. � 1 . Public Street Options � Constructing public street Option 1 would provide access to two houses and six lots. Opportunity for development is limited to 62 apartment units of infill housing on 3.87 acres of land. � The total cost to construct Hoyt from Jackson to Abell Street would be $80,880. A limited number of property owners would benefit from Option 1 and these few owners would be required to pay all assessment costs . � Option 2, which involves constructiny portions of East Idaho, Wanda, Hoyt, and Nebraska Streets, opens more land to develop- � ment than does Option 1 . Maximum development opportunity in Option 2 is limited to 146 apartment units of infill nousing on 9.1 acres of land. Grading, paving, and providing sanitary , sewer improvements would cost an estimated $331 ,000. Sanitary sewer would not be provided to lots along Abell Street in Option 2. 1 Option 3 is a variation af Option 2 that realigns the Wanda Street right-of-way so that sanitary sewer service can be provided to lots abutting Abell Street. Maximum develop- � ment opportunity in Option 3 is limited to 145 apartment units of infill housing on nine acres of the site. Grading, paving, and providing sanitary sewer improvements would cost an estimated $406,010. ' ' -27- ' ' All three public street options would carry certain � "social costs": 1 . Less opportunity for affordable housing units is created than through moderate density Planned � Developments. 2. Considerably less tax revenue is generated through � moderate density Planned Development as is illustrated by Figure 15 Tax Revenue Projections) . 3. Incremental development is promoted at the expense of � the neighborhood character of the area. 2. Planned Development Options � . Planned Development Options 4-6 consist of low density developments ranging ir� density from 3.87 to 8.12 units per , acre. The high cost of land and site improvements associated with low density development drives up total unit costs to $88,000-$122,600 per residence. Staff finds that per unit costs in Options 4, 5 and 6 exceed the sales market for the � area. Marketability of "high bracket" housing units are negatively affected by nearby public housing and industrial land uses. � Options 6 through 8 require that as many as 35 area residents be relocated. Obviously these residents have a keen interest � in all deliberations affecting the future development of the area. Proceeding with clearance activities requires current residents to give up their "country acres" in the heart of �he City. These residents may be less than anxious to move so � that the land can be better utilized for somebody else's benefit. Every effort to relocate these current residents in the neighborhood or the Planned Development should be � pursued. Option 7 consists of a low to moderate density Planned � Development of 346 new housing units with a market value of $77,500 per unit. Option 8 consists of a moderate density Planned Development of 490 new housing units with a market value of $73,400 per unit. Staff finds that in both Options ' 7 and 8 average unit costs are comparable with average market values of the surrounding area. Both Planned Develop- ment O�tions 7 and 8 provide striking onportunities to � coordinate the development in the area by completing construction over a short period of time and availing the developer economies of scale. The developer must, however, assume a large capital investment and proceed wrth public hearings on the Plan before ' construction is undertaken. , -28- , � � In summary, the surrounding area will benefit from a high quality Planned Developr�ent. The market values and des�ir�ability of surrounding properties should increase with � ` a Planned Development. Conversely, incremental dev�elopment does little to enhance nei,ghborhood character and could impair property values. , All evidence suggests that Options 7 and 8 provide the best opportunity to utilize the site at its highest and best use, � expand the City's tax base, provide part of St. Paul 's need for affordable housing, and enhance the character of the surrounding neighborhood. ' B. RECOMMENDATION Staff recommends that a project feasibility analysis of mixed : � density options 7 and 8 be undertaken. This analysis should include: a discussion of the Planned Development zone concept as it applies t� the specific project area; an indication of � the anticipated level of developer interest; further refinement of development costs; and finally, a recommendation on whether proceedinq with either option 7 or 8 :s warrante�. , � � � � � , � � � ' -29- � ' V. CREDITS � City Council Ron Maddox, Chairman � Public Works George McMahon Committee Victor Tedesco � Plannin� Thomas P. FitzGibbons, Jr. , Chairman ' Corrmission Liz Anderson Nelsene Karns Clark Armstead David Laneqran Ralph Brown Joseph Levy James Bryan David G. McDonell � Carolyn Cochrane Joseph Pangel Sam G rais John Schmidt Rev. Glen Hanggi Gayle Summers � Sister Alberta Huber Janabelle Taylor David Hyduke Adolph T. Tobler Richard Kadrie Robert Van Hoef , Ac�ninistration James J. Bellus, A.I.C.P. , Director and Depa rtment of Planning and Economic Development � Policy Peggy A. Reichert, Deputy Director, Planning Division Direction Department of Planning and Economic Development James Zdon, Principal Planner, Neiqhborhood Section, � Planning Division Research Fred S. Haider, Planner-in-charge � and Mark Flinner, Intern, Mankato State University Planning Rick Beeson, Project Manager, Housing Division Dan Bre��er, Architect, Development Division � � The District 6 Housing Committee and District 6 Land Use Task Force deserve special credit for � their review, input, and support of this study. - � � -30- � ,