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277600 WNITE - CITY CLERK � PINK _. FINANCE COUIICII �� CANARY - DEPARTMENT G I T Y O F S A I N T �A U L B►11,IE - MAYOR File N O. � City Attny/JTH . . Council Resolution Presented By Referred To Committee: Date Out of Committee By Date RESOLUTION APPROVING CITYWIDE REDEVELOPMENT PLAN WHEREAS, there has been presented to and considered at this meeting a twenty four page mimeographed document with appendixes and map attachments entitled, "Citywide Redevelopment Plan" con- taining statements respecting Purpose, Need, Goals and Objectives, Redevelopment Techniques and Implementation Provision; and WHEREAS, the Plan is proposed as an overall three year direction to the several public development and redevelopment initiatives within the City of Saint Paul under the Minnesota housing and redevelopment and United States housing and community development and related State and Federal legislation as a means of coordinating development and redevelopment project and program undertakings and resolving differences between specific project and program plans and more generalized land use planning documents; and WHEREAS, the Saint Paul Planning Commission has reviewed the Citywide Redevelopment Plan as to its consistency with the Saint Paul Comprehensive Plan and has reported by Resolution No. 81-31 that the Citywide Plan is consistent with the Comprehensive Plan, except for certain identified land use provisions of specific prior approved redevelopment plans which conflict with the District Council District Plan provisions, and has approved the Citywide Plan on condition that these conflicts be resolved in accordance with the process set forth in the Citywide Plan; and WHEREAS, the Housing and Redevelopment Authority of the City of Saint Paul, Minnesota has approved the Citywide Redevelopment COU[VCILMEIV Requested by Department of: ; Yeas Nays Hunt Levine In Favor Maddox McMahon B �jy�� Gt.�irr.�, Showalter __ Against Y Tedesco Wilson Form Approved by City Attorney Adopted by Council: Date — Certified Yassed by Council Secretary BY sy � Approved by Mayor. Date _ Appro Mayor for ub ' si to ouncil BY - – — BY WHITE - CITY CLERK PINK - FINANCE n COUflCll � � CANARY - DEPARTMENT G I TY O F SA I NT 1 �U L �'� BLUE - MAYOR File N O. C Council Resolution Presented By Refecred To Committee: Date Out of Committee By Date —2— Plan by its Resolution No. 81-10/8-8 and the City Council has conducted a public hearing upon said Plan all in the manner required by law, now therefore be it RESOLVED by the Council of the City of Saint Paul that 1. The purpose of the Citywide Redevelopment Plan is to serve as a coordinative plan for all development and re- development activities within the community as well as authorative plan for program undertakings in Identified Treat- ment Areas (ITAs) and administration of the Citywide rehabil- itation efforts. 2. These redevelopment activities and programs would not be undertaken at the levels provided for without financial aid under the Community Development Program. 3. These redevelopment activities and Plan will afford maximum opportunity, consistent with the sound needs of the community as a whole, for private participation. 4 . The Citywide Redevelopment Plan conforms to the Saint Paul Comprehensive Plan save that certain District Plan land uses are at variance with land use provisions of prior approved Redevelopment Plans and the Citywide Redevelopment Plan provides a process for resolution of these land use variances. 5. The Citywide Redevelopment Plan is hereby in all things approved. COUNCILMEN Yeas Nays Requestgd by Department of: Hunt Levine In Favor Maddox � — sr,� _ __ Against BY /�'`�. �+`.2l'� Tedesco Wilson OCT 2 7 1981 Form Approve City Attor ey Adopted by Council: Date Certified a 5 y Counc�l Se tary BY � By t �p Appr v d y Mayor. uC 1 2 � �'o, Approve y Mayor for Submi i to Council By _ BY PUBUSHED N O V 7 198a � ��4 � � ,� � �,� �° T �.� - � .�� .,.;.:. _ _._..�:�. ,..x�= � � ot�� .d-ws,e�sr.td• Aaei�l�r�t• �Le 3+�r NY . ' w� �F: �,aarl�li�ii�ia:+�,;.��:�;�+� N�"i� AE1t�DlF��il s: �C°HT•IfilttNa+rl�'Irt1 4b►�auocA ot t Ciq d�E'� .- .m t!b ceuac�i.��.. �. Kai�i�d CourC��!Me� � Bfc`'Paud.Diinaa�ote.m a�'20 �1. - tyvfteSedewtepwwN�im. . � CaqNM otlhrt b�li!!�llw!!��,` �di!r�Nd�: •Plamdni. Carfwilelah-"s�fi�o�atlaiff '"'if►34l.01� �'oC�GrtfJ'�k:'lrabel'�' Hal1. `' a� g► thM t�at ot'��i Et�6�iNtitc��il�R�#i16�r:� �- :.ty'�!�/�riez:`ffi#Mk°•�l'SItY�4 8t. PsitiY�'�lneact�:rid'istt7e�ioip�e� tioe�rt�ul�r.�b�ie�'��amr in- te��,_ xi 4a�`: '� � ::��. �IKI �' nnit '�e.9 :,°�� '�+�. Measd� ' . � �'>�r �" ,� '� �� ' �,. . � �� ,.;a ::�'w.�-` _.. . . .. ...,. ..-�.: - ; ..- . ,:.. + .- :r ,�.: N y �3�'T s^��w�aa� �+.��3 r t'i"n ;"�. ��; . . . . . ' � +. ,,1 k -,��f i ' a• ,q y� � 'i � � . . � . . ...i ,.� �1� ` 1 t�, .�� y�'-�i�� :. � ` ,�. 1 a `� ,�,,�� ,S � �� r r , .��F� �t R � � � �� . .. , .�. r � . ��` � .y;�. 'tFS �s.x.t�s ::a � °��+t'�f, a.�k� � �� . 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Jam�es �eilus . . � Dir+eetQr'�o!;P�D . _ l��i FX.00=��C#.ty Hsl'1 Anne�c , . ; ,`_ . � . � ,- ' � �. • ` " Dear 31r t : : : - . ' ' Tbe Ci�y Ooau�cil`today s�t a daL�, ot b�ar�:�g tor �4et�bs�r 2�'th#` �:�1 ,-, �- to aobsideir a document �ntitl� f f/�it�v��de. Reds�ot F�4a" i"�tz� , , M Co�i�Y Aevelop�ent Frogram Yeere �V�,� ttiru IX st�d � r�lst,�d dccw�tn,t, a Planni.�, Commisaion s#.�lY' report ��ttit�l.e8 "Red�alopment _ • P1w�Distx'ic� Pl� Conflicts". wi11 yr�u pl�ps�t tak� th� t�sttea�s� . .. � ' ateps to provtde proper and�or requSr�d notifi,aatioa o! thia - , " . _ pub21C he�7�'ittgr ' : : , • , � � . � __ Very truly yulu's, , ' Alber; �. Olson ,, . � � . Ci�yr Clerk• • .. , � ' _ , . � � , . � _ 'ABOsI+t . � � . ' � , ; _ � _ @ . � � . �+e�. Ar�r I�eicBert �: . , � , _ . � . • _ " � . , , � , . • , . ..1 . . . _ . � - � � �. . � � � � _� .. �� , � . . . � ��- � � .. ; �� . � �- � . � . , -. . ' . . . . t . . .. . ` . ' . . . . . ' . 1. i . � � � ,.. � � � .. . � . .. . . � / . . ' . . � ' . . .. , � � . . � . ... . .. ' � . . . � . .. . ••. . . ' . ... . , . . . ;� '. ' • . ' . . � 1 . . . . ' . .. . , . ,� . , �. . ''1 . . \.. . . . - . . , ' . . . � � . ' . . . . . ' . � � �.' ' . � '. . . � . l . . . � . . . . . . . _. . , . . � . . . ... . ., � � � /�� . �R��'o, ,� ' CITY OF SAINT PAUL �e �'� DEPARTMENT OF PLANNING AND ECONOMIC DEVELOPMENT c.+ �plil)Itll ,E . �� nn t�u n � • " DIVISION OF PLANNING ��""�� 25 West Fourth Street,Saint Paul,Minnesota,55102 GEORGE LATIMER 612-298-4151 MAYOR September 23, 1981 Chairman Ron Maddox and Members of the Housing Redevelopment Authority Board 700 City Hall � St. Pau� , Minnesota 55102 Dear Chairman Pladdox and Board Members: The Plannin� Commission of the City of St. Paul has reviewed the draft Citywide Redevelopment Plan for consistency with the St. Paul Comprehensive Plan as required by law. Its fin�ings are contained in a resolution and staff report which were adopted on September 11 , 1981 . Both are transmitted with this letter. � As noted in the resolution and staff report, some inconsistencies were found between previously adopted Redevelopment Project Plans and the more recent District Plans. The Planning Commission is satisfied that these inconsistencies do not present major problems at this time, and that the plan amendment process established in the Redevelopment Plan will effectively resolve them as this becomes necessary. The Planninca Commission does request that the list of inconsistencies in the staff repart be incorporated into the resolution adopting the Citywide Redevelopment Plan, so that this amendment process can be automatically initiated should the need occur. If you have any questions about the Planning Commission findinas , do not hesitate to call me at 298-4151 or Patricia James at 292-6232. Sincerely, • � � �� Peggy A. Reichert Deputy Director for Planning cc: George Latimer, Mayor � PR:PJ:mh city of saint paul . � pianning commission resolution file number $�-31 date Septe►�er „ , ,98, _ RESOLUTION FOR APPROVAL OF CITYWIDE REDEVELOPMENT PLAN 4;hEREAS, the Citywide Redevelopment P1an for Community Development Program . � Years VII through IX, hereinafter referred to as the Redevelopment P7an, has been prepared by the Housing and Redevelopment Authority of the City or St. Paul , and submitted to the Planning Cor�nission for its review; and WHEREAS, the Redevelopment Plan has been reviewed by the Planning Comnission and by the Planning staff as to its consistency with the Comprehensive Plan for the Ci ty of St. Paul , as amended; and w'HEREAS, canflicts between some Redevelopment Project Plans and some District Plans have been found and are noted in the attached staff report titled "Redevelop�r�ent P1anJDistrict Plan Conflicts"; and . WHEREAS, the Redevelopment Plan has authorized a conflict resolution process whereby the Planning Commission and the affected District Council , . review the conflict and make recommendations to the City Council for their review and resolution of�such conflict; PiOW, TNEREFORE, BE IT RESOLVED, that the Planning CorrQnission finds the � Citywide Redevelopment Plan to be consistent with the Corr,prehensive Plan for the City of St. Paul on condition that the conflicts identified in the aforementioned staff report are resolved according to the process - established in the Redevelopment Plan; and BE IT FURTHER RESOLVED, that copies of this resolution and the accompanying staff report be transmitted to the Housing and Redevelopment Authority, the City Council , and the Mayor for the City of St. Paul. moved by Cochrane s�;�onded by Tobl er ' in favor �$ . ; . against o ;��o;�, CITY OE SAINT PAUL �� ; � �i DEPARTMENT OF PLANNING AND ECONOMIC DEVELOPMENT �� iiii�iii�ii � ��+ "c DIVISION OF PLANNING •,;` � ,,,�� 25 West Fourth Street,Saint Paul,Minnesota,55102 GEORGE LATIMER 612-298-4151 MAYOR MEMORANDUM DATE: September 9, 1981 T0: Comprehensive Planning Committ�e " . FROM: Patricia James � RE: Redevelopment P7an/District Plan Conflicts INTRODUCTION The city�mu'st adopt a Citywide Redevelopment Plan each year in order to carry � on its rehabilitation and community development programs. In the process of revising this Redevelopment Plan, the question of its relationship to adopted district plans arose. This report identifies areas of conflict or potential conflict be�ween the Redevelopment Plan and the appropriate district plans. AUTHORITY FOR REVIEW , The Planning Cammission is charged with reviewing redevelopment plans for conformance with the Comprehensive Plan under the Housing and Redevelopment Act (1981 Minnesota Statutes, Chapter 462).. EACKGROUND � This year for the first time, the Comprehensive Plan has been used as the basis for revising the Redevelopment Plan. Since district plans are adopted as part of the Comprehensive Plan, the following question was raised. What is the procedure for resolving conflicts (or apparent conflict) between district plans and redevelopment plans? Specifically, which plan k�ould take precedence over the other? In discussions with city staff, it was decided that any such conflicts should first be identified and then .that a plan amendment process should be developed to resolve them. This process wi11 involve redevelopment staff, the Planning Commission, �he affected district council and the City Council . The process is briefly described on page 14 of the Citywide Redevelopment Plan. ISSUES � The areas of conflict have been divided into specific conflicts and potential conflicts. Potential conflicts are those where interpretation of plan language and intent may resolve the problem. Specific conflicts are those wher� there is a clear difference in proposed uses. . -2- ' • I. Specific Conflicts A. Riverview Industrial Project Plan 1. The area covered by this Plan is bounded by Wabasha St: eet, the bluffs, the High 6ridge, and Water Street. Industrial uses are shown throughout the project area. The District 3 Plan shows this area as part of the proposed Narriet Island mixed use development, which would also include residential and �ommercial usES. ' , B. Redevelopment Plan, Summit-University 1 . Commercial uses are shown at Selby and Dale, extending north along Dale to Marshall . The District 8 Plan recommends that commercial uses not extend past the alley lines on either side of Selby. It proposes residential uses for the area north of the Selby-Dayton alley. 2. A commercial use designation at Selby and Oxford extends north _ to Dayton. Again, the District 8 Plan shows residential use north of the alley line. C. Redevelcpment Plan for the Upper Levee Renewal Project The entire project area (Wilken-Spring-W'ashington-Shepard Road) is shown as an industrial area. The District 9 Plan recommends open space for all but the western corner. D. Redevelopment Plan, w'est Seventh Street 1. Commercial clusters are shown along West 7th Street at Grand, in the Western-St. Clair area, at Randolph, north of Otto, and between Hathaway and I-35E. Residential uses are proposed for the rest of the land along the street. The District 9 P7an shows commercial the length of West 7th to Otto, except between Palace and Jefferson. Residential (interspersed with comrriercial ) is proposed for the area next to the freewa�y. 2. A co�mercial area is shown near P1eas.ant and Jefferson. The District 9 Plan calls for residential (with interspersed commercial ) at this location. 3. Office-commercial uses are proposed for the area bounded by Colborne, Randolph, Erie and Jefferson. The District 9 Plan has recomnended residential uses interspersed - wi th coranerci al . " -3- E. Redevelopment P1an, l+'est Midw�ay/South St. Anthony 1 . The area bounded by Highway 280, Territorial Road, the�.city limits, and the railroad tracks is designated as residential . The District 12 Plan shows industrial uses at this location. 2. The triangle formed by Charles Avenue, Territorial Road, and Carleton Street is designated residential . The Distri,ct 12 Plan recomm�ends comnercial/industrial uses for this ' � site.• 3. A commercial node is designated west of Raymond on Hampden Avenue. The District 12 Plan shows commercial/industrial uses north of Hampden and residential uses on the south side of the street. F. Redevelopment Plan, Central CorE and Seven Corners 1 . Land use in the Lowertown area is designated as commercial service. The District 17-Downtown Development Plan proposes a variety of uses for sites in the Lowertown area, �ncluding residential , institutional/ cultural , industrial , and government as well as office service and mixed use. 2. The western portion of downtown, bounded by I-94, St. Peter, Seventh, and Kellogg is shown as institutional use. The District 17-Downtown Development Plan proposes residential use for the area bounded by John Ireland, Rice, College, and 9th, and mixed use for the area west of P1ain-9th-Exchange and the block facing St. Peter between Exchange and 8th. G. Seventh Place Redevelopment Project 1 . The triangle formed by 8th, 9th, and Cedar is shown as corr�nercial . The Seven Corners-Central Core Plan recommen�s public use for this site. The District 17 Plan calls for open space. 2. The St. Paul F:otel site is given a residential use. The District 17 Plan indicates mixed use. -4- � II. Potential Conflicts A. Concord Terrace Project Redevelopment Plan 1 . Commercial uses are shown the length of Robert to Concord and then along Concord to Ada. The District 3 Plan calls for low density mixed use in this area. � 2. The land immediately west of the Ada-Dunedin Terrace intersection , � is designated as "neighborhood residential" (1-2 family units). The District 3 Plan recommends medium-high density. 6. Cathedral Area Urban Renewal Project 1 . The land on the east side of h�estern Avenue between Concordia and Marshall is shown as institutional , with medium-density residential as an alternative use. The District 8 Plan shows the area as medium-high density residential . C. k'estern Area Redevelopment Plan 1 . One and two family density residential uses are shown along Fuller and Aurora between Farrington and Marion. The District 8 Plan proposed medium density residential uses for this area. 2. The land south of Fuller between Virginia and Farrington is shown as "park and school" with residential as an alternate use. The District 8 Plan shows multi-family residential land use at this location. (The Fianover ��ousing Project is on this site. ) D. Redevelapment Plan, k'est Seventh Street A commercial cluster is shown at the intersection of Grand and West 7th. The area surrounding this inte�section is shown as a mixed use area in the District 9 Plan. E. Redevelopment Plan, Thomas-Dale The area bounded by Rice, University, Marion, and Pennsylvania is shown as commercial and residential . The Capital Area Architectural and Planning Eoard �as land use jurisdiction over this area, nat the city. Present zoning is not reflected in the redevelopment plan. This may need to be reconciled with the State. . . � -5- CONCLUSIONS The specific conflicts generally involve mutually exclusive land use recommendations, i .e. , residential or industrial , industrial or open space, commercial or residential . The potential conflicts are ambiguous for one of three reasons: 1 . The redeve]opment plan calls for commercial , the district plan for mixed use. k'hile mixed use can include commercial uses, can the commercial designation in the redevelopment plan allow for some mixing with residential � or other compatible use? The answer depends upon the particulars of each ' plan and each proposed development project. 2. Both plans recommend residential use, but vary in the density called for. Generally, the district plans have responded to the need for more but smaller dwelling units by allowing densities slightly higher than those found in the older redevelopment plans. 3. The district plan recommends a use that is shown as an alternate, or secondary, use in the redevelopment plan. Fi r�a17y, the redevel opment pl ans ��`or-the dow�ntown area speci fy commerci al retail or commercial office uses for a number of specific areas that the District 17 Plan shows as mixed use. These areas have not been identified indivldually on the assumption that there is no conflict between the two desig- nations. 1vh11e there are relatively few conflicts between redevelopment plans and district plans, those that do exist need to be resolved so that development and redevelopment proposals are not unnecessarily delayed. Some of these conflicts may be reconciled through staff discussions. For example, variations in recommende� residential densities may not warrant a plan amendment. Other conflicts will require that a plan amendment process be followed, so that either the redevelopment plan or the district plan is brought into conformance with the other. REOUESTED ACTION 1 . Staff requests that the Comprehensive Planning Comnittee ar�� the Planning Corr�nission accept this report as its findings on the conforr�ance of the Citywide Redevelopment Plan with the Comprehensive Plan. 2. Staff requests that the committee and the Commission find the Citywide Redevelopment P1a� in conformance with the Comprehensive Plan on condition that the identified conflicts are resolved in a timely manner, either: a. Through policy decision that no true conflict exists; or b. Through a plan amendment process that involves the Planning Commission, � the affected district council , and the City Council . _. • �.,�, �� , ��1==o. , CITY OF SAI NT PAUL ; o H DEPARTMENT OF PLANNING AND ECONOMIC DEVELOPMENT p uii'i i'i a . � JAMES J.BELLUS, DIRECTOR '•°+ 25 West Fourth Street,Saint Paul,Minnesota 55102 612-298-5775 GEORGE UTIMER MAYOR October 9, 1981 Mayor George Latimer, Council President Ron Maddox, and Members of the City Council c/o City Clerk Room 386 City Hall St. Paul , Minnesota 55102 Pursuant to Resolution No. 81-10/8-8, adooted by the Board of Commissioners of the Housing and Redevelopment Authority of the City of St. Paul , Minnesota, on October 8, 1981, it is -hereby r�quested that the City Council schedule a public hearing for October 27� 1981, at which time it will consider adoption of the document entit1ed "Citywide Redevelopment Plan" for Community Development Program years VII through IX, and a related document, a Planning Commission staff report entitled "Redevelopment Plan/District Plan Conflicts." This request is to be placed on the City Counci1 Agenda for October 7.5 , 1981. ,. `(� E J. L E ec tive Di or Ho ing and Redevelopment Authority of the City of Staint Paul , Minnesota JJB:pj ,�;� : :� 1 0 D D � D � CITYWIDE REDEVELOPMENT PLAN � PURPOSE When adopted by the City Council , the Citywide Redevelop- ment Plan will function�as an umbrella for all the re- development activities undertaken by the St. Paul Nousing � and Redevelopment Authority (HRA). The Plan enables the HRA to use the finance and rehabilitation tools found in the Minnesota Housing and Redevelopment � Act and the federal Housing and Canmunity Dev�lopment Act to help revitalize residential , commercial , and indus- trial areas in the City and to assist tMe City's low , and moderate income residents. � For the first time h St P 1 iv P1 n a , t e . au Canprehens e a h s been instrumental in shaping the Citywide Redevelopment � Plan. � � AREA The City has adopted a number of area redevelopment plans � which are incorporated into this Citywide Plan. In . addition, sor�e programs and projects in this Plan will serve St. Paul 's Identified Treatment Areas (ITA'S) � and a number of others are citywide in scope. , , SCOPE For the first time, the Citywide Redevelopment Plan has been designed for use on a three-year basis. Annual � amendments will be used to accomodate necessary changes. The Plan will be used not only to identify current activities but also to review �iRA performance of these � activities. ' MAJOR OBJECTIVES 1. To provide background informatinn and data establish- � ing the need to continue St. Paul 's revitalization ef- forts. 2. To relate the City's established goals and objectives � to the development and redevelopment policies found in � other city plans and documents. . 3. To provide a description of redevelopment techniques that are or can be used in the City. 4. To provide general direction and to ser�e as a check- �. list for the new and continuing redevelopmen� activities that will be needed to accomplish the City's goals. 5. To provide general standards for the development or � redevelopment of qualifying areas or properties within the city. These standards will conform to the city's established develo�nent objectives and policies, including � appropriate �and uses and techniques for accompiishing citywide deveiopment or redevelopment. � DIVISION OF PLANNINQ • DEPARTMENT OF PLANNING AND ECONOMIC DEVELOPMENT • CITY OF SAINT PAUL CITY HALL ANND( • 25 WEST FOURTH�uTREET,SAINT PAUL, MINNESOTA 55102 • TELEPHONE:612-298-4151_ � � TABLE OF COP�TENTS � � _-- -------- ---------------._---_---_- --- � � 2.0 STATEMENT OF NEED � ^� __� �� '� 2 2.1 POPULATION 3 2.2 HOUSING ~ 3 � � 2.3 THE ECONOMY �� _ 4 2.4 INDUSTRIAL AND COMMERCIAL QEVELOPMENT 5 2.5 TAX BASE AND FISCAL STRESS 6 � 3. G S AND OBJECTIVES � � ~� • R � 4.0 CI DEVELOP ENT/ � ��^ 9 REDEVELOPMIENT POLICIES � 4.1 ST. PAIJL COMPREHENSIVE PLAN 9 4.2 ST. PAUL CAPITAL ALLOCATIOPJ POLICY 1982-1986 12 . . EDE OPMENT P� NS - •LAND 1JSES 14 � 5.0 REDE ELOPMENT TECHNIQUES � �T 15 5. LEG L LIMIT/kTIONS 15 � 5.� E#�IGiB1�E ACTIVITIES 16 � 6.0 FUTURE DIRECTIONS 19 6.1 LAND USE PLAN Ih1PLEMENTATION 20 -� 6.2 H USING IP•1PLE�IENTATION PR GRA ~�2 - 6.3 ECOPJOMIC QEVELOPh1FNT STRATEGY 23 � APPENDICES � - � , A. DEVELOPPqENT AND REDEVELOPMENT PROJECTS _ ~ B. COMPOSITE LAND USE MAP C. LIST F PROJECT SPECIFIC REDEVELOPh1ENT � � PLANS AND MAPS � , � � � � � CITYWIDE _ REDEVELOPMENT pLAN � � 1 .0 PURPOSE The purpose of this Citywide Redevelopment P�an is to � provide an outline for activities undertaken by the St. Pau] Housing and Redevelopment Authority (HRA) , pursuant to the Minnesota Municipat Housing and Redevelop- ment Act. It also links the revitalization efforts of l the City's Comnunjty �evelopment Program to the same activities , undertaken pursuant to the U.S. Housing and Community Development Act of 1974 through the NRA's � agency agreement with the City of St. Paul . � �he Citywide Redevelopment Plan specifically authorizes � the NRA to carry out activities in the City's Identified Treatment Areas (I�As� and to administer rehabilitation programs througNout the City. In general , the Plan authorizes carrying out eligible deve�opment activities � in accordance with these state and federal Acts. The City of St. Paul receives the authority and power to � engage in development or redevelopment activities from four separate and specific laws. The most important of these laws , Chapter 462 of the Mfnnesota Statutes , 1981 , � is the Housing and Redevelopment Act previously mentioned. Under this Act, the F�ousing and Redevelopment Authority � (HRA� of St. Paul is esta6lished, and is authorized to engage in activities reiating to: (1 ) housing projects � and development (especially for low and moderate income people� ; (2� removal of or prevention of the spread of conditions of blight or deterioration; (3) bringing sub- � standard buildings and improvements into compliance with pubiic standards ; (4� disposition of land for private deveiopment; and (5) improving the tax base and the financial stability of the commwnity. The HRA engages in ithe aforementioned actTVities when these needs cannot be met through reiiance soiely upon private initiative. � The Act gives the HRA a specific range of powers includ- ing the power to acquire land, sell land, engage in planning, employ a variety of financing instruments, and � establish land use controls (462.445) . Additionally, it requires that redevelopment projects and activities be devised according to a redevelopment plan (462.515) . � Such a plan is defined as "A plan approved by the govern- ing body. . .which plan provides an outline for the development or redevelopment of such area and is suffi- ciently complete: (1 ) to indicate its relationship to � definite local objectives as to appropriate land use; and (2) to indicate general land use and general stan- dards of development or redevelopment." "(462.421 (15)) . � This plan fulfills these requirements for the city as a whole. It is organized in the following manner: � 1 � i t - 2 0 St te nt f Need--A brief surtmar of he cit 's � . a rne o y t y economic, fiscal , and demographic characteristics. - 3,0 Goa1s and Objectives--A sumnary of the city's goals � and objectives, as defined by the Mayor's Agenda and the Comprehensive Plan. � � - 4.0 Development/Redevelopment Po9icies--A summary of the principal development and redevelopment po1icies as established in the Comprehensive Plan and the Capital � A11ocation Policy. - 5.0 Redevelopment Techniqu�s--Identificat�on of current � HRA development/redevelopment tools and techniques, including their scope and limitations; identification of potential tools and techniques; sunmary of legal � limitations and requirements. - 6.0 Futur� pirections--Future directions for the city's development/redevelopment activities based upon the � Comprehensive Plan and emerging opportunities. 2.p S ATEMENT OF NEEQ � St. Paul is an older, fully "built' city whic faces a � network of interrelated problems. Most of these problems � stem from the growing gap between the levels of r�sources needed for municipa1 services, reconstruction of�public � � facilities , housing rehabilitation, and economic develop�- ment, and the levels of resources available to the city for these ac�ivities. Some of these problems in�clude: � an older housing stock, 60% of which was constructed prior to 1940 and much of which needs rehabilitation; a loss of people and industrial/commercial firms; a slower � . rate of personal income growth than the region as a whole; a decline during the past decade in retail strength - relative to the metropolitan area; a need to rehabilitate � and maintain extensive public facilities ; slow growth in the city's taxable base; a decline in federal aid�-- Corr�nunity Development Block Grant (CDBG} , General Revenue Sharing, etc. ; and a level of bonded indebtedness per � capita higher than the national average. A more detailed . exposition of these problems is presented below. Much of the statistical material which follows was gener- � ated during the development of the Comprehensive Plan, . from data provided by the Census Bureau, R.L. Polk Company, the Minnesota Department of Employment Security, � and city departments. � 2 � � l � . OPULATION . St. Pau1 has undergone a population decrease. From 1970 to 1980 its population declined 12.8%, from 309,866 to � 270,230; although it appea►"s to have stabilized in recent years. � 7he character of the city's popu1ation is changing as well . In the mid '70s , Census figures show that the elderly comprised 13.7% of St. Pau1 's population, � compared to the 9% estimated for the metropolitan area by the Metropolitan Counci1 . Also, St. Pau1 's popu1ation is not maintaining its rate of income groWth re9ative to the region. The difference in median family income between � St. Pau1 and the SMSA has been steadily increasing since 1960. In 1970 St. Paul 's median family income was $10,544 or 90.3% of the SMSA median. In 1980, St. Paul 's �� median family income was $19,900, or 84.3% of the HIJD- determined SMSA median. � Despite the decrease in tota7 population, the number of househo1ds in St, Paul has been increasing. Tn i960, the city had about �8,700 households, by 1980 this number had increased to about 100,000. As the number of house- � holds increased, household size decreased. The average household size fell from 3.38 persons in 1950 to an estimated 2.42 persons in 1980. � Although population and househo1d size have declined, the demand for and cost of services have not. Inflation has drtven up costs, while the growth of a re1ative1y lower � income population has increased the need for •some services. - Thus, one problem facing the ci�y is how to meet the rising demand for services with a sma�ler, 7ess affluent � population base to share the cost of those services. � SIN i The above demographic changes have put distinct pressures on St. Paul 's housing stock. Decreases in the number of larger families resulted in a somewhat reduced need for , larger single family homes and dup1exes, which still comprise 63% of the total stock. Nonetheless, the rising number of households (one and two persons, particu1arly) � has caused an increase in the proportion of dwelling units found in multi-unit struc�ures, from 28� in 1950 to 37% in 1980. In all , the city estimates that between � 1975 and the first ten months of 1979, 2,798 housing units were added to the supply. � � 3 � � � � � Despite these efforts to ease housing pressures, vacancy � rates in St. Paul are very low. Vacancy rates in 1978- 7980 averaged 0.5� for single-family and 4.5� for multi- � family units . Vacancy rates of 3.0% and 6.0�, respec- tively, are �onsi.dered ideal to provide choice and mobility. ` � In addition..to the need to increase the supply of housing, St. Pau1 's existing� housing stock is old, in need of renovation, and energy inefficient. Sixty percent of it ` was constructed prior to 1940 and over one-third before 1920. According to a 19.74 survey, 30� of all the houses � need some structural renovation or rehabilitation. The � vast majority 1ack sufficient energy conservf�ng features as well . S1nce then, the city has made a strong commit- ment to housing rehabilitation. From 1977 to 1981 , 55% .� of the CDBG monies allocated to housing have been ear- marked for rehabilitation. This represents a total of about $9.8 mi11ion. At the same time, privately financed home improvement loans of over $33 million have been made � throughout the city. 2.3 THE ECONOMY j St. Paul has a diversified economic base. A Midwest . Research Institute report en�i.tled "The Economic Impact � of the Port Authority of the City of St. Paul ", released in March 1981 , describes shifts in the relative importance of economic sectors which occurred during the 1970s. As the state capital , St. Paul experienced its fastest � � growth in government-related jobs, a 74� increase since 1965. Government, services, and other types of non- manufacturing jobs now provide half the employment in the � city. Diversified, high technology firms provide much of the remainder of the employment. Government, services, and high technology do not have the cyc1ical nature of � the nationa1 economy; therefore, St. Paul has been able to adjust to national economic recessions far better than most midwestern cities. The resilience of the economy is most evident in labor � force and unemployment statistics. Despite popu1ation declines during the 1970s, St. Paul 's labor force � increased, largely due to increased labor participation by women. �nemployment rates in the city have stayed consistently between 1 to 2 percentage points lower than � the national average. � 4 � � � � Although St. Paul 's unemployment rate is below the national rate, its unemployment is concentrated among minorit�es. According to 1970 census data (the most � recent avai1able) minority groups comprised 6.7% of St. Pau1 's total popu1ation and 5.5% of its labor force, but constitu'tEd 1T.�7%�of the unemployed. The unemploy- � � ment rate for minority groups was double the total rate in 1470. Aecording to 1980 census figures, minority groups make up about 13% of the �tota7 population of � St. Paul . Unless there has been� solid improvement in the employment status of these groups, there is a good possibility that the city will experience a rising unemployment rateo 1 Income 7evels in St. Paul have not ke t ace with P P regional levels and have remained below the regional � ' median, as documented earlier. To a 1arge extent, this trend in income levels may be credited to the shifts in employment: reductions in the number of higher paying � manufacturing jobs and increases in the number of govern- ment and services jobs , particular7y clerica7 positions , , that fa71 at the 1ower end of the wage scaie. , . IND STRIAL AND COMMERCIAL D�VELOPMENT The Twin Cities metropolitan area has compiled a record of strong economic growth during the last decade. While � most of that growth has occurred in suburban regions, St. Paul has held its own. Between 1965 and 1980, according to the MRI report, St. Paul 's job base grew 17%. � The increase in government, services, finance-insurance- real estate, and non-durable manufacturing more than offset the declines in other areas. Most of the losses � occurred in the construction, manufacturing, transporta- tion and trade sectors. St. Paul has lost a number of firms to suburban industrial � parks. Between 1960 and 1979, 63 firms moved to the suburbs from St. Paul . This contrasts markedly with the fact that only six firms moved to St. Paul from either , Minneapolis or the suburbs during the same period of time. The availability of land, transportation access , and proximity to other firms may have been the principal � causes for relocation. Retail trade in the city declined in the past decade, � with St. Paul 's share of total metropolitan area sales dropping from 15.6% in 1972 to 13.5% in 1976. A major factor in this decline is the ring of suburban shopping centers which surrounds the city and attracts retail � establishments as well as shoppers. � 5 . � � Notwithstanding the commercia1 and industrial out- � migration just mentioned, St. Paul has experienced signi- ficant development to counterbalance the relocation. Recent development between 1978-80 included $298 million � in downtoVrn construction, $88.7 mil1ion in public and private neighborhood development, and $74 million in neighborhood commercial district revitalization. � Examp1es include the Town Square complex with two office towers�-$120 million, St. Paul Notel redevelopment (�to be completed in 1983)--$25 million,' and East 7th Street commercial/industrial revita.lizatipn -- $9 mi117on. � Furthermore, since 1975 retail sales in St. Pau1 have � shown a steady increase when figured in constant dollars. In 1979 the retail do1lar volume was approximately $1 .5 billion. Since a substantial n�mber of retail facilities � �p?ned in 1980, this figure should increase significantly. 2.5 TAX 6ASE AND FISCAL STRESS � Again, as a fully "built" city, St. Paul faces the continua1 requirement of reshaping and improving aging � public faci7ities. The Department of Public Works has estimated the annual cost of rep]acing the street and sewer systems at over $20 million per year. Moreover, the city continues to suffer from regiona1 overburden in I providing such services as roads, sewers and recreational � facilities for noncontributors to the tax base. For examp1e, St. Paul pays an estima�.ed $75,000 each month � � for treating suburban stormwater runoff. St. Paul 's limited finances ar� well-managed, however. Between 1977 and 1981 the oper�at�ing budget actually � declined when figured in constant dollars. Because of increased state ai.d,the city was able to significantly decrease its reliance on the pro�erty tax. In 1974 over � half of St. Paul 's general fund budget depended on the property tax, while in 1980 this proportion was reduced to 35�. However, recent changes in the State's Local � Government Aid formula wi11 keep this trend from continuing. The Budget Section of the Mayor's Office projects that property tax increases of 34% and 32� over the next two years will be needed, even after extensive budget cuts. � Furthermore, federal aid is diminishing. For examp�e, the city's CDBG entitlement, its most significant federal grant, began at $18.8 million in 1975 and dropped to $9.8 � million for 1980. � 6 � � • � � More importantly, these stresses are imposed on a stable base of support. Approximately one-third" of the total property valuation in St. Paul is tax-exempt, including institutional , governmental and higher educational land. � Over the past five years , the city's property tax base has grown an average of 3% annually, in constant dollars. While this fs an adequate record for a mature city, it � indicates that St. Paul cannot finance its needs by relying on rapid growth in real estate values. The city's property tax base is 'also used to guarantee ' � repayment of general obligation banded debt. Too high a I levej of debt can require a disproportionate amount of I . property tax revenues to retire it. The city already has II � one of the highest levels of per capita bonded indebted- , ness in the country--$961 compared to $563 for cities of comparable size. The city is addressing this problem. j � Beginning in 1977, St. Paul , Ramsey County, and the I School District formed the Joint Debt Advisory Committee. ; Representatives from the three government units estimated j � their need for general obligation bonding for the next ; ten years. These projections were used to establish debt ' limit goals . St. Paul 's goal is to reduce its portion of the total de6t to $900 or less per capita and to 6°d or � � less of estimated market value. The City Councii adopted � this goal as official city policy. By 1980, the city's � portion of the total general obligation debt was 4.9� of I estimated market value. ' ; l � � In sumrttary, without additional development, the city I cou7d be affected in several ways : (.l � municipal facili- � ties and services might suffer due to declining revenues ; � (2� the resourcefulness of the city to stimulate housing � � development could be seriously impaired; (3� the assis- ' tance which the city gives the private sector as an incen- � tive for development and redevelopment may be seriously i � constrained; (4) residents of St. Paul may not have � adequate job opportunities ; and (5) the city may not be ;' able to attract economic development further into the ! future. � � � i � ; i � � � ' � � � � � . � 3.0 S ND OB IYES 'St. Paul is at a turning point. On the one hand it is � confronted with serious social , economic and fiscal problems that have cha1lenged many of the city's basic resources and institutions . At the same time, a number � of major opportunities for revitalization appear within reach, some �af wMich will dramatically reshape major portions of our downtown and neighborhood corr�nunities . � St. Paul 's self-image and its community attitudes are in the midst �f transition, as the•city attempts to redefine its goals and its vision of the �uture. An important opportunity presents itself for us to make use of bo1d � � leadership, imaginative thinking and community-wide cooperation to set a new direction for the future of St. Paul .° I As excerpted from Mayor Latimer's 1977 Agenda for a Future St. Paul , this statement embodies St. Paul 's commitment � to meet the city's development and redevelopment needs with a set of goals which are realistic but also have vision. � The Mayor's Agenda functioned as a working document that focused city priorities on specific program areas deemed essential to the long-term health and vitality of the � city. Two of these objectives--economic development and . better neighborhoods--have formed the basis for many of St. Paul 's development activities. � In 1980, these objectives were formally adopted and expanded upon by the city's official p1anning document-- j � The St. Paul Comprehensive Plan. The Comprehensive Plan provides a vision of the city's future and a straight- forward approach to realizing its potential . The first � chapter of the Plan--the Overview--presents the city's � key objectives for the 1980s: INFRASTRUCTURE Maintain city investments, particularly I sewer and water lines, streets, bridges, pub1ic buildings, and existing parks, through repajr and replacement as needed. � JOBS Maintain existing jobs in St. Paul while seeking to expand available employment � opportunities. HOUSING Maintain and upgrade the city's existing sound housing stock while seeking to � . improve deficient housing and generating construction of new, affordable housing choices in character with the neighbor- � hoods surrounding them. 8 , � - � � ENERGY Achieve greater energy efficiency by maintaining and retrofitting existing � structures while encouraging energy conservation and innovation. ,::� , . . Focusing efforts 'on these four major objectives will � enable St. Paul to deal more effectively with the issues coming to the foreground in the 1980s. Like many cities, St. Paul is faced with needs and expectations that � surpass the city's limited supply of resources. Scarcities in capital , 1and and energy will strain St. Paul 's ability to accortxnodate competing demands. Because St. Paul may � not have the resources needed ta accomplish all of its objectives, attention must be directed to those activities essential to the city's future well being. Concentrating � the city's efforts on a few critical items--infrastructure, housing, jobs and energy--wi17 be an important factor in allocating scarce resources wisely. Moreover, this focus provides an overall framework for St. Paul 's development , and redevelopment activities. � 4.0 CITY DEVELOPMENT/ St. Pau1 's primary deve1opment and redevelopment policies REDEVELOPMENT POLICIES are contained within two major policy documents: The St. Paul Com rehensive Plan and the Capital Allocation ' Po1icy 98 -1986. These documents expand the city's four key objectives--infrastructure, jobs, housing and energy-- into specific policies and recorranendations, many of which � pertain directly to deve1opment/redevelopment activities. These policies were developed by a 1ong and thorough planning process that included extensive citizen partici- pation. Moreover, the comp1eted plans and any subsequent � revisions have undergone a pub1ic review process prior to formal adoption by the St. Paul City Counci1 . � 4.1 ST. PAUL COMPREHENSIVE PLAN The St. Paul Comprehensive Plan, hereby incorporateci by reference and made a part of this Redevelopment Plan, can � be divided into seven major categories: Land Use, Housing and ��eighborhoods , Economic Development, City Center, Pub1ic Systems, Implementation and District Plans. Within � these categaries, certain Plan elements provide significant pQlicy guidance to city deyelopment activities. These elements are outlined beloW. � •� � 9 . � 1 A.LAND USE � The Land Use Plan is St. Paul 's guide to evaluating propose c anges in the locations and intensities of various ]and use activities. The central issue discussed � � by the tand Use Plan is the pressure that will be generated 6y additfional demands on a limfted supply of land. To meet these demands, the �and Use Plan proposes the creation � of mixed use clusters. Clustering involves the mixing of . land uses in a pattern relatively more intense and dense than surrounding single use developments. Clustering � compati6le activities aljows for more efficient land use, promotes energy efficlency, and creates new development opportunities without negatively impacting tF�e existing nei�ghborF�ood fa6ric. � The �and tlse plan also explores issues related to the � supply and demand for land within six major land use � categories: residentia� , commercial , industrial , recrea- tional , institutional and transportation. Although St. Paul 's land use needs must be met, the Land Use Plan � stresses that care must be taken to avoid damage to the city's character and unique natural features. B.HOUS�NG AND N�IGI�BORF100DS � The Housin Polic P�an identifies severai housing issues t at wi impact the continued viability of St. Paul `s neigf�borhoods and directty affect the welfare of many � city residents. '�he issues are: - A shortage of appropriate housing. - Limited vacant land for new construction. � - Changing household preferences. - Rising heating costs. � - The need for housing rehabi7i�ation. � The Housing policy Plan proposes measures to encourage alternatives to the singie-family home in new construc- � tion and to spur rehabilitation of existing rental properties. Emphasis is placed on reducing housing costs and assisting lower-income househo�ds. The Nousing Policy Plan also continues the city's commitment to neighborhood � revitalization through educational and assistance programs and code enforcement. It stresses cooperation among neigF�6orhoods , city government and private institutions. � � � 10 ' � � � . The Housin Im lementation Pr, oTgr_a_mr establishes the genera i rect�on o`�r�Tit e-ci ty s i ndi vi dual hous i ng programs, as based on objectirres and policies of the � Housing Po1icy Plan . It functions as the working compan- ion to the Policy Plan by guiding program implementation and administration. It a1so serves as the basis for � modifying existing programs , and devising new programs to achieve St. Paul 's housing objectives. � C.ECONOMIC DEVELOPf�IENT The Economic Development Strategy is a comprehensive statement of St. Paul 's economic and f7scal goals, and a set of po�icies to assist the city in meeting its goals � for a strong economy and stable pattern of growth. Under- lying the Strategy are two basic principles: (1 � St. Paul 's primary responsibility is to its citizens; and (2) ' St. Paul 's appropriate role in economic development is that of facilitating and guiding the activities of the private sector and providing incentives for reinvestment � in the city. The Strategy's major objectives inelude: - Strengthening the non-residential tax base. � � - Increasing the num6er of employment opportunities . � - Improving the climate for business ventures. - Re-establishing the identity of downtown as a major regional center. , Specific policy recommendations relate to neighborhood commercial areas , industrial and large-scale cofrnnercial development, downtown development, employment and job- l . • training assistance, small business entrepreneurship � and the cultivation of a healthy 6usiness environment. � 1 D.IMPLE��IENTATION � The Implementation Strategy focuses on municipal decision making. It illustrates how the Comprehensive Plan can � guide and influence decisions and recommends ways to coordinate city activities into an integrated decision- making system that supports St. Paul 's major ob�ectives. � The Strategy is composed of three major parts: - Involving the community in the making of public deci- sions that address issues of neighborhood and citywide , importance. - Caordinating all city activities into an integrated implementation system. � - Focusing the system on St. Paul 's four primary objec- tives : infrastructure, jobs, housing and energy. � � 11 � � The Strategy discusses the city' s key implementation � activities (e.g. , budgeting, provision of services, inter- governmental relations) and sets forth general policies , that provide guidance to municipal decision-makers. Policies regarding city development activity emphasize selective public actions that stimulate private investment , and promote the objectives of the Comprehensive Plan. The Strategy also contains a list of projects that were identified in the Comprehensive Plan as the most important � activities to be accomplished over the next 3-5 years. The Implementation Strategy and list of critical activities will be reviewed and revised annually to reflect the � city's current implementation priorities. E.DISTRICT PLANS St. Paul has been divided into 17 citizen participation � districts. District planning councils, made up of district residents, have prepared long-range community plans that address physical , social , and economic problems in their � area. Each District Plan is thus unique; although they address common issues. Specific recommendations are made by each District to resolve local issues, as well as to � tailor city policies to local conditions. 4.2 ST. PAUL CAPITAL ALLOCATION POLICY 1982-1986 � T�e Unified Capital Improvement Program and Budgeting Process (UCIPBP) is St. Paul ' s method for planning, programming, and budgeting all capital improvements. � The process is unified because all funding sources for capital improvement projects over which the city has discretion are allocated at one time. Although the � process is complex, it guarantees input from a variety of perspectives. Citizens, District Councils, the Planning Commission, city departments, the Mayor, and City Council all take part in determining the Capital Improvement � Budget. The Capital Allocation Policy document was specifically � designed to guide the capital improvement budgeting process. It sets the general direction for capital expen- ditures over a multi-year period. The policies are used � � to focus capital expenditures according to city goals and objectives, and to determine the relative priority of proposed capital projects. Each year, the Capital Alloca- tion Policy is revised by the Planning Commission and � subsequently adopted by the City Council . The Capital Allocation Policy 1982-1986, adopted January 20, 1981 as Council File No. 276231 , is hereby incorporated by � reference and made a part of this Redevelopment Plan. A brief summary of the Policy will follow. - 12 � � � . � A.GOALS AND PRINCIPLES Four major goals form the basis for St. Paul 's capital improvement expenditures. These goals are: ' 1 .To strengthen the city's neighborhoods in order to make them better places to live. ° 2.To strengthen the city's economic base in order to � provide jobs and services needed by residents of the city. 3.To consider energy use in all the city's activities and � to increase en2rgy efficiency whenever possible. 4.To ensure the structural integrity of the city's . physical facilities in order to maintain basic levels of service and prevent potential health and safety hazards . 1 Because capita1 funds are limited and needs are reat 9 � these goals are supplemented by three general principles � that reflect the city's responsibi1ities and opportunities. These principles are: � - Critical needs which are necessary to protect basic 1ife, health or public safety take precedence over all other capital jmprovements . I - The city's primary responsibility is the provision of basic services . A steady commitment of capital improve- ment funds is required to maintain the efficiency and effectiveness of these basic service systems. , - When choices exist, the ability of a capital improve- ment to stimu1ate private investment and effect measurable neighborhood or economic improvements should be taken into consideration. At the same time, some funds shou1d be made available to prevent deterioration and blight in sound areas of the city and to meet the � need for improvements which benefit the city as a whole. In order to assure balance among goals and principles , policy guidelines establish the relative proportion of � funds that should address three broad categories of capital projects : (1 ) improvements to the service system, i .e. , streets , bridges, sewers, parks , po1ice and fire � services , etc. ; (2) improvements to facilities that support the ability of local government to provide services efficiently and effectively; and (3) assistance � that the city gives the private sector as incentives for development or redevelopment of physical assets not owned or operated by the city. I I 13 �, � � B.POLICY OUERVIEW The Capital Allocation Policies are divided into four � sections: strategy, implementation and development, project,and budget policies . Each policv section provides a different level of direction for the capital improvement , budgeting pr.ocess: � The Strategy Policies set the general direction for the city's c apital improvement allocations based on goals and principles. Implementation and Develop- ment Polic�es identify character.istics that are important � in evaluating capital improvement proposals. Project Policies focus more specifically on types of pro�ects that wi11 be encouraged or discouraged. In some cases, , corr�nitment to certain types of projects or funding condi- � tions are identified. The Bud et Polic.ies address the various sources of funds availab e to St. aul for capital improvements. , These policies are monitored throughout the proposa1 review and budget preparation process by the Planning Commission, � the Budget Section of the Mayor's Office, and the Capital Improvement Budget Committee, an appointed citizens' committee responsible for recommending funding priorities � for proposed capital improvements. The City Council has � final responsibility and authority for implementing the - policies and adopting th� Capital Improvement Budget. � E 0 MENT PLANS - LAND USES The land use provisions of �hose Redevelopment P1ans and ' Community Deveiopment Programs already adopted by the � City of St. Paul , after determination of their conformance with the St. Paul Comprehensive Plan, shall constitute the � controlling, specific land use provisions and requirements for the Citywide Redevelopment Plan in the areas of �he city covered by those plans. These Redevelopment Projects and Community Development Program areas are identified and � mapped in Appendi�c A. Tfte land use provisions of the Plan for Land Use of the � St. Paul Comprehensive Plan sha11 constitute the contro1- iing, general land use provisions and requirements. The &er�eralTZed Land Use Map from the Plan for �and Use can be fo�m d in Appendix B. � � As additional Redevelopment Pro�ects or Comnunity Develop- ment Programs are adopted in the manner required by law, � their land use provisions sha11 , upon adoption, become the eontrolling, specific �and use provisions and requirements for the areas they cover, � , In the event of apparent conflicts in the iand use provi- sions of Yarious Comprehensive Plan e9ements or Redeve1op- me�t Plans , the matter wi�l be reviewed t3y the appropriate � Dfistrict Coanci� and the Planning ComnT$sion, Recommenda- tions sha�1 b�e made to the Ci�ty Counci� , which wi17 take appropriate action to resolve such conflfcts, , 14 � .. � � 1 5.0 REDEVELOPMENT TECHNIQUES Th�s section details current development or redevelopment tools used �y the I�RA. These tools are used when it has ' 6een determined that the property in question, or pro�ect area, is su6standard or blighted and that private initia- , tive alone is incapab�e of redeveloping it or when needed � to implement the Comnunity Development Program. (A list of current pro�ects and their status is compiled quarterly by the Qepartment of Planning and Economic Development in its Pro�ect Status Report. ) I5.1 LEGAL LIMITATIONS All techniques or powers c!�rrently authorized by appli- � cable statutes (especially the Minnesota Housing and Redevelopment Authority Act and the Housing and Community Development Act of 1974 as amended) can be used by the � Authority. However, use of these tools must conform to certain legal limitations. The major limitations are listed below. � A.Conformance with the city' s Comprehensive Plan and with other applicable city policies and ordinances. For example, changes in land use must conform to the city's � Land Use Plan, and will preferably conform as well to the local District Plan. , B.Citizen participation requirements of the Housing and Community Development Act of 1974 as amended and found in the Code of Federal Regulations, Part 570 are met . through the appropriate District Council , which is � informed of proposed projects and given the opportunity to review and comment on both the plans and the developer. District Councils also participate in the Unified Capital 1 Improvement Program and Budgeting Process which allocates funds for Authority projects and programs. The Councils provide the membership for three task forces who assist � the Capital Improvement Budget Committee by reviewing all budget proposals and reporting their findings to the Committee. Each District Council also has the opportunity to evaluate those budget proposals that will affect its ' particular district. C.Relocation benefits for occupants displaced by public � action is necessary to assist those displaced to secure adequate replacement housing in compliance with the Federal Uniform Relocation Assistance Act, the Housing � and Community Development Act, and the Minnesota Housing and Redevelopment Authority Act. D.The Authority �vill not discriminate on the basis of � race, religion, color, sex, political or other affilia- tions, or national origin, in compliance with federal and state law. � 15 � � � ; 5.2 I BLE CTI I I S � Any activities that are authorized by Minnesota Statutes i � Section 462.445 to accomplish a work or undertaking that � meets the definition of a housing project, redevelopment pro�ect, or housing development project found in ( Minnesota Statutes Section 462.421 shall constitute eligi6le project activities under the Citywide Redevelop- � ment Plan as long as these activities are identified as necessary or convenient to accompiish the goals and objec- tives of approved housing or redevelopment plans or community development programs and are approved in these plans or programs. • ;: Some of the more common activities are discussed `below. They are divided into two broad categories : direct activities and facilitating activities. A. DZRECT ACTIVITIES 1 .ACQUISITtON Property is obtained b,y the HRA for development/redevelop- � ment by gift, grant, purchase, exchange, lease, transfer, bequest, by the exercise of the power of eminent domain, �' or by tax forfeiture. Generally, property is obtained � through purchase or tax forfeiture. Purchase of property is usually done with specific development/redevelopment � objectives in mind, and property is not held for long periods of time. Eminent domain is most likely used fQr � a highly intensive development where a single site is � central to a major worthwhile project. In any event, obtaining property must conform to municipal and state laws governing public purchase, tax forfeit and eminent domain. i There are six general conditions which indicate that acquisition may be appropriate, The,v are: G1 ) the land , is vacant and currently underutilized, and as such exerts ' an adverse influence on the surrounding neighborhood; � (2) the previously developed property is substandard, i exerts blighting influences , is infeasible to rehabili- tate, or is needed for public purposes; (3) the property is appropr�ate for conservation or rehabilitation but is economically infeasible for the current owner to rehabili- � tate, or the current owner is unwi1ling to rehabilitate to code standards; (4) the existing housing is under- utilized because it is occupied by the elderly or others I � i � � i 16 � � � who are financially or physically incapable of providing routine maintenance; (5) the site presently contains substandard commercial structures and is needed for new � constructi4n or for the grouping of comnercial facilities where they can be mutually supportive and provide greater convenience and �service to neighborhood residents ; or � (6� the site is publicly-owned and surplus , such as school sites and tax forfeit parcels. 2.DISPOSITION � The Authority usually resells its property for redevelop- ment purposes. However, the Authority, may also retain . ownership and lease the property to those who meet income � or age eligibility standards . Before selling property for development/redevelopment, • the Authority wants to ensure that its objectives will be met. To this end, the HRA retains the right of design review, and resale of property for development is condi- � tioned on the purchaser's agreeing to design controls. Large parce1s are subject to other development controls which include criteria for such things as lighting, signage, landscaping, and so forth. These controls are � incorporated into the deed and run with the land for up to 30 years. . , The Authority may recort�nend that more stringent health, housing, building, fire prevention and housing maintenance code requirements be applied to residential structures which are being rehabilitated. Specifically, the Authority � encourages all new developments (residential and non- residential ) to maximize energy efficiency. Rehabilita- tion and conversion projects are also encouraged to focus � on ways of improving energy efficiency. � The Authority may also maintain a catalogue of all land owned or controlled by it or the city. The city may � rev�iew each parcel for potential use/reuse consistent with St. Paul 's Zoning Ordinance, St. Paul 's Comprehen- sive Plan, and provisions of th�is Redevelopment Plan. � In dis osin of its ro erty, the Authority enerall P 9 P P 9 Y follows one of two courses of action: (1 � redevelop the � property and resell it to qualifying individuals; or �2� sell the property to qualifying individuals who will redevelop it according to the agreed upon design controls. � Thus, residential properties may be rehabi1itated for subsequent resale to fami1ies of low and moderate income or resold "as is" to families willing and capable of � undertaking the rehabilitation. � » ' � � Individual developed parcels may also be assembled, and � sold as larger tracts to meet plan objectives. Structures on such parcels may be either demolished or moved to other ' vacant lots. , . Besides clearance, the Authority may grade, fill , or do other site preparation in anticipation of the sale of ` publicly owned vacant land, to r�ake the property more marketabl e'. ' . Much of the Authority's activity in property acquisition/ � disposition involves some form of subsidy, or "write down" . for land costs . � B. FACTLITAT�ING ACTIVITIES , While all of the techniques described thus far facilitate development/redevelopment, the techniques in this section function more as inducements to the private sector to � redevelop property without acquisition by the NRA. Besides subsidizing redevelopment through the land write- downs previously discussed, the Authority can offer tax � exempt financing and other tax incentives for projects that further the city's redevelopment goals and objectives. � In addition, the Authority may administer rehabilitation ' loan and grant programs for residential and commercial rehabilitation. The primary focus of the loans and grants will be to assist property owners in meeting local code , requirements for owner occupied structures., non-owner � occupied structures , and non-residential structures, according to eligibility guidelines adopted for each program by the city. ' The Authority can facilitate development/redevelopment by constructing, reconstructing or expanding public facili- � ties that are necessary for neighborhood revitalization. Such facilities include parks , playgrounds , utilities, sewers , fire protection facilities and equipment, and � public rights-of-way, The following actions regarding rights-of-way can be taken in order to provide safe pedestrian and vehicular circu7ation: (1 ) necessary redesign and reconstruction of major streets; (2) reduc- � tion of unnecessary through traffic; (3) provision of off-street parking near commercial and other uses that generate vehicular traffic; (4) construction/reconstruc- , tion of sidewalks, street jights , skyways, pedestrianways , and traffic control devices ; and (5) vacation of streets , and alleys. � 18 � � - ,� � Finally, the Authority can provide relocation benefits . beyond those required to iielp ir�lement the Connwnity Deve1opment Program. � 6.0 FUTURE DIRECTIONS The previous sections of this pian have descrtbed current � trends, techniques, and policies as well as long term goals and ob�ectives. This section tries to identify additional ways to reach these goals through modification � or expansion of current activities and pplicies. The HRA and its staff can use this section as a checklist to measure the degree to which the goals of the city are being met. Cues for future direction come predpminantly l from the newiy developed Comprehensive Plan, Of the P�an's major empfiases (maintaining city investmer�ts in infrastructure, maintainfng existing �obs and expanding employment opportuniti�es , maintaining and upgrading the � , city"s housing stock, and acFiieving greater energy effi- ciency), this Redevelopment Plan draws most heavily from' 1 those of upgrading tF�e housing stock and expanding ert�loy- ment opportunities. Although the Camprehensive P1an is new, St. Paul 's work in these two areas dates back many years , and many of the Plan's reconmendations advocate , the continuation of existing programs. Nowever, some of the recommendations that follow do represent new ideas for St. Paul . � The t,and Use Plan, the Housing Implementation Program, and the Economic Development Strategy are most relevant in identifying future directions . The key recommenda- � tions from each of these Plan elements are sunmarized be1ow:. � � ' 1 1 � � 19 , i 1 , E ATIO � The Land Use Plan is the focus for a variety of related topics such as housing, business and industrial develop- � ment, environmental and historic protection, and parklands. �.t directs the use of land to meet the objectives of other portions of the Comprehensive Plan. The most germaine recommendations are as follows: � A.TO USE LAND MORE EFFECTIVELY, THEREBY CREATING GREATER OPPORTUNITY FOR NEW HOUSING UNITS: � - Studies and plans for development of mixed land use clusters. • - Delineation of appropriate new residential sites via the � District Housing P1an process. - Pub1ic improvements which will serve new residential deve1opment. - Creation of a mixed use cluster zone in the Zoning j Ordinance. - Estab1ishment of criteria to a11ow higher density housing in low density areas. � - Establishment of criteria to allow conversions of single fami1y houses to more than one unit structures. - Establishment of criteria to allow residential uses in , mixed commercial zones. B.TO PROMOTE NEIGHBORHOOD ECONOMIC STABILITY THROUGH MORE EFFECT�VE ANp EFFICIENT USE OF LAND: � - Guide location through public assistance programs. - Commercial market analyses and subarea plans. . - Deve1opment of zoning controls to 1imit the expansion of � neighborhood and strip commercial . - Establishment of performance standards and requiring performance bonding for mixed use areas and commercial areas. t C,TO PROTECT EXISTING NEIGHBORHOODS FROM INAPPROPRIATE NEW DEVELOPMENTS AND PROTECT VALUABLE RESOURCES: � - Bluff easements and linear parks deve1opment. - Open space easements on institutional land. - Special zoning studies to review higher density zoning � in 1ow density residential areas, site design review � with performance standards and bonding, and controlling reuse/expansion of institutional lands. - Requirement of soil analysis and corrections before ' construction is allowed on potential1y poor soils. - Site plan review over development in cluster areas, in �ow density residential areas, in sites affecting land- � marks or historic properties, fn high density housing areas, and in areas where incompatible uses adjoin residential lands and require buffering. , 2Q � � . � ' 6.2 H USING IMPLEMENTATION PROGRAM The Housing Implementatidn �rogram focuses on housing supply, housing and neighborhood quality, housing afford- , abi1ity, and housing condition analysis. These four groups of deve1opment/redevelopment reconmendations work toward implementing the city's Housing Po1icy P7an. ' , A.TO PROMOTE AND FACILITATE PRIVATE SECTOR DE'VELOpMENT OF 10,Q00 HOUSING UNITS: � - Formalize the city's ombudsman office function for developers . - Improve comnunication between city st,aff and neighborhood ' � _ and co�xnunity groups concerning major developments. - Establish a one-stop permitting office for developers. ' Give high �riority to housing funding techniques that provide investment returns to the city �e.g., revolving � loans, tax increment financing) rather than grants. - Strongly encourage det�elopers to provide low and moderate ; income housing. � - Develop alternative methods of financing housing for 1ow � , and moderate income residents. � B.TO ESTABLISH PROJECT EVALUATION TEAMS TO PROVIDE I , PRELIMINARY EVALUATION OF PROPOSED HOUSING PROJECTS. i � _ C.TO IMPROVE THE COOROINATION OF H011SING PLANNING WITH i I THE NEIGHBORHOODS VIA THE DISTRICT HOU$ING PLAN PROCESS i AND LIAISON WITH DISTRICT COUNCILS. i D,TO REVISE THE ZONING ORDINANCE T0: I � - Promote conversion of single family homes. i - Promote Planned Unit Developments. � � - Address residential use of carriage houses. i � �,TO CONSIDER HOUSING IN PLANNING THE REUSE OF LARGE NON- � RESIDENTIAL SITES. ! i � � I ' F.TO COORDINATE MOUSING MAINTENANCE FUNCTIONS SUCH AS: � - Code enforcement and certificate of occupancy program. I - Housing loan and grant programs, � � - Assistance to neighborhood organizations. ' - Public improvements. I � G.TO DEVELOP A COORDINATED REHABILITATION PROGRAM FOR ! � MULTI-FAMILY NON-OWNER-OCCUPIED RENTAL STRUCTURES. � i � H.TO DEVELOP AN ENERGY-EFFICIENCY RETROFITTING PROGRAM. � i j � � 1 21 ; � . � � I.TO PROVIDE FINANCING AND TECNNICAL ASSISTANCE TO I REHABILITATE AN ANNUAL AVERAGE OF 1 ,500 HOUSING 11NITS AND CONTINUE TO ENCOURAGE PRIVATE FINANCING FOR AN ADOITIONAL � ANNUAL AVERAGE OF 1 ,500 UNITS: - Focus on provision of increased resources for rehabili- tation of multi-unit rental structures. , - Work Por continued availability of private funds for � housing rehabi1itat�on (prtvate loans in con�unction with NHS programs, and community based non-profit devetopment corporations�.. ' J.TO ENSURE ADDITIONAL PROTECTION FOR RENTERS: - Support legislation allowing renters to repair their � unit to address building code violations and to deduct the cost of these necessary repairs fran their rent. - Require earlier notification and �re complete informa- - tion on proposed condominium conversion. � - Establish a fot^�nal Displacement Policy. , K.TO DEVELOP INNOVATI'VE FINANCIAL TOOLS AND TECHNIQUES TO � INCREASE HOUS�NG AFFORDABILITY: �- Use of jocal government financing techniques such as revenue bonding, tax increment f9nancing and Port � Authority bonds. - Use of a larger portion of available federal resources toward production of low and very low income housing. , Encourage expansion of non-profit corporations as a � deve1opment tool for low income housing. - Expand city's grantsmanship function. L.TO COORDINATE ACTIVITIES OF CITY'S CODE ENFORCEMENT AND ' MULTI-FAMILY REHABILITATION PROGRAMS: - Provide incentives to encourage landlord improvements � and disincentives to prevent deferred maintenance. M.TO PURSUE NEW INNOVATIUE FORMS OF LOW INCOME HOME OWNEaSHIA: , - Support a private information and resource center for cooperative housing. - Provide technical assistance to non-profit organizations � involved in providing low income housing. - Pursue new federal and state low incane ownership programs. � N.TO PROVIDE AT LEAST 25Q LOW TNCOME RENTAL UNITS EACH YEAR: - Target public assistance (Section 8 and local bonding � authority). - Encourage at least 25% of new low 9ncome rental units for larger families. � , 22 / � , � O.TO TARGET SECTION 8 MODERATE REHABILITATION FUNDS INTO AREAS EXPERIENCING HIGH DISPLACEMEMT FROM REINVESTMENT IAND CONYERSIONS. P.TO SUPPORT FEDERAL AND STATE TAX LAW CHAN6ES TO CON- STRUCT MORE RENTAL HOUSING AND TO MAIC� IT MORE AFFOROABLE: ' - Provide incredsed 1eve1 of rent credits. Q.TO PROVIDE INCREASED TECHNICAI SUPPORT THROUGH DATA � ANALYSIS AND PROGRAN[�E1►ALUATION. 6.3 ECONOMIC pEVELOPMENT STRATEGY � The Economic Development Strategy concentrates on fvur distinct issue areas: increasing the city's tax base; increasing the number of available �obs; improving the � � opportunities and climate for business ventures; and re- establishing downtown as a regional center of employment, shopping, investment and residence. This Redevelopment � Plan includes future program dlrections relating primarily to neighborhood carmerciat deve]opment and re]ationships , to surrounding residents. , A.TO LINK HOUSING REHABILITATION PROGRAMS (ITA AND NHS) WITH COhq�IERCIAI REVITALIZATION PROGRAMS (LOCAI. DEVELOPMENT CORPORATIONS, NE�GHBORNOOD COMr1ERCIAI AR£A IMPROVEMENT 1 PROGRAM, AND UDAGS). B.TO DEYELOP NEIGHBORNOOD COMMERCIAI. REVITALIZATION PLANS - IN COOPERATION WITH THE NEIGHBORHOOOS. � � C,TO DEVE LOP OR MAINTAIN A MIX OF SERVICES AND GOODS ORIENTED TOWARD MEETII� THE NEEDS OF THE RESIDENTIAL , NEIGHBORHOOD. � D.TO ENCOURAGE COhANERCIAL AREAS TO DEIIELOP IN MORE � CLUSTERED LAND USE PATTERNS, WITH NEW AND REI�ABILITATED RESIDENTIAL UNITS INTERSPERSED WITH THE C(�lERCIAL FACILITIES. ! E.TO WORK WITH NEIGHBORHOOD BUSINESSES, RESIDENTS AND DISTRICT COUNCILS TO DEVELOP UNDERSTANDING OF THE COMPLE- MENTARY AND MUTUALLY SUPPORTIVE ROLES THAT RESIDfNTIAI 1 AND CON'N�IERC IAL USES CAN PLAY. F.TO ENCOURAGE NEIGI��tH0p0 COMIMfRCIAL DEYELOPMENTS THAT � ARE ORIENTED TOWARD MEETING NEEDS OF THE NEI6HBORHOOD, RATHER THAN A BROADER OR CITYWIDE MARKET. G.TO ASSIST LOCAL CONq�1ERCIAL AREAS IN ORGANIZING THEM- , SELVES INTO EFFECTIVE LOCAL DE'VELOPMENT CORP4RATIONS. 1 23 � , H.TO PROVIDE PUBLIC IMPROYEMENTS IN CONJUNCTION WITH � NEIGHBORHOOD CON�IERCIAL AREA IMPROVEM�NT PROGRAM SITES. I.TO ENSURE TNAT BUSINESSES ARE AWARE OF THE FULL RANGE , OF TECHNICAL ASSISTANCE AND RESOURCES AVAILABLE FROM PRIVATE SOURCES (SERVICE CORPS OF RETIRED EXECUTIVES, METROPOLITAN ECONOMIC DEVELOPMENT CORPORATION, AND CDC'S , BUSINESS RESOURCE CENTER) . J.TO IDENTIFY NEW SITES THROUGNOUT THE CITY WHERE NEW � C�IERCIAL DEVELOPMENT IS FEASIBLE. K.TO EXTEND PREFERENCE TO PROPOSED CONMERCIAL DEYELOPMENTS � THAT CATER SPECIFICALLY TO RESIDENTS OF THE ADJACENT NEIGNBORHdOD. L.TO STRONGLY ENCOURAGE I.00AL FINANCIAL INSTITUTIONS TO � INV�ST IN LOCAL BUSINESSES. M.TO INVESTIGATE FINANCE TOOLS THAT COULD PROVIDE LOW � INTEREST I,ONG TERM LOANS TO SMALL BUSINESS�S, INCLUDING RENENUE BOND REVOLYING LOAN PROGRAMS. , � � � � � . 1 1 � 24 - � , APPENDIX A LIST OF PROJECT-SPECIFIC REDEVELOPMENT PLANS ANO LAND USE MAPS � The location of redevelopment projects and areas nunbered 1 through 19 is shoNn in Map l ; Nwnber 20 is shown in Map 2; and Nianber 21 is shovin in Map 3. � 1 . Mod�fied copy of Redevelopment Plan for the Western Redeveloqnent Pro�ect. U.R. Minn. 1-2, west of Minnesota State Capital , Revised 2/57. Map 2/57. , 2. Redevelopment Plan for Uppe.r Levee Renewal Pro�ect Minn. R-3 6/58. Map 3/58. 3. Redevelopment Plan for Eastern Redevelopment Pro3ect, U.R, Minn. l�l, , Revised 10/4/61 , t4ap 10/59. 4. Cathedral Area official Urban Renewal P1an R-25, 5/1/63. , 5. Cathedral Area General Neighborhood Renewal Plan Minn. R-17, 5/1/63 6. Riverview General Nei�borhood Renewal Plan Minn. R-4 5/1/63, Map 1/63 � 7. Redevelo nt Plan for Cathedral A e U n pme r a rba Renewal Pro3ect R-25 Revised 1/66, Map Revised 1/66 �� , 8. Downtown Urban Renewal Area Official Redevelopment Plan. Minn. R-20 10/63, Map 10/63 ' ' 9. Redevelopment Plan for Riverview Industrial Pro�ect Minn. R-26 1/64, Map 6/64. � 10. Redevelopment Plan for Auditorium Urban Renewal Area Minn. R-53 9/3/68. Map 9/68 11 . Concord Terrace Pro3ect Redevelopment Plan Minn. R-37 8/5/70, Map 8/70 � - 12. Redevelopment Plan SuaNit-University Minn. A-1-1 i/73, Map 1/72 . 13. Redevelopment Plan West Midway/South St. Mti�o�y PaNc Min�. A-i-2 1/73, Map 1/72 , 14. Redevelopment Plan Thomas-Dale Minn. A-1-3 1/73, Map 1/72. 15. Redevelopment Plan Central Core Minn. A-1-5 1/73, Map 1/73 � 16. Redevelopment P1an. Seven Corners Minn. A-i-6 1/73, Ma 1/73 P I17. Redevelopment Plan West Seventh Str�et Minn. A-1-7 1/73. Map 1�72 18. Park Nursery Redevelopment Plan 2/�24-76, Map 2/76 ` 19. Seventh Place Redevelopment Pro�ect 11/16/78. Map 11/78 20. 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