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276997 WHITE - CITY CLERK �� PINK - FINANCE COI1tIC11 CANARY - DEPARTMENT G I T Y O F S A I N T �A U L BLUE - MAYOR File N O. ' R eso ti . , Pre d By Referred m e ate Out of Committee By Date HIGHWOOD DEVELOPMENT STRATEGY WHEREAS, the District 1 Comnunity Council has requested the City of Saint Paul 's Department of Planning and Economic Development Planning Division to prepare an issue paper detailing Highwood development concerns and proposing a comprehensive development strategy; WHEREAS, the paper, titled Hi hwood Develo ment -- Too Much Too Soon?, has been prepared jointly by the District One Counci and Planning Division staff and proposes six actions to undertake a development strategy which implements the adopted plans and policies regarding the Highwood area; WHEREAS, the paper's six actions have been reviewed and are supported by the � Di stri ct 1 Corrmuni ty Counci 1 ; WHEREAS, the paper has been reviewed by the Planning Commission, Department of Planning and Economic Development, the Department of Public Works, the Water Utility, the Valuations Division of the Department of Finance and Management Services, the Division of Housing and Building Code Enforcement, and the District 1 Community Council ; and WHEREAS, initiation and completion of the actions proposed in the paper will require the cooperation and coordinated efforts of the above persons; NOW, THEREFORE BE IT RESOLVED, that the Saint Paul City Council hereby comnends the District 1 Community Council for their role in bringing Highwood development issues to the Saint Paul City Council for action; and recommends initiation of the six actions outlined in the Highwood development strategy proposal ; and directs the Planning Division of the Department of Planning and Economic Development to proceed with the necessary studies to develop a reco�nended development management package. COUfVCILMEN Yeas Nays Requestgd by Department of: Hunt Levine [n Favor Maddox � McMahon st,o,,,,eite� __ Against BY Tedesco . Wilson ��o� ' Jk1N 1 g ° Form Approved by City Attorney Adopted by Council: Date — Certified P•. •e by Council creta By sy - Appro ;Vlayor: D t .IUN 1 9 198i Approved by Mayor for Submission to Council By _ _ BY UBUSNED JUN 2 7 1981 . . � . ..�.. � . . . .. , j.. . . , .. .... . . . � . . . . 1��' ..- .. . • .. ._. � . � .. . . i . . . � . ' .. . " , . .. '�+'i.. . . . . - . .. . _�� . "" . " . . ' � . .. /. ' . _ • � �... . - . �� . , } , ; _ . . , . � �_ ._ . , . _ - _ � : , - . ; � , _ , . , , _ .. . � . � - - ' . � . .\� � . y . . . - . �y . - �� / -. . .. . .. � .. . ' . , - . . � . .. . � � . . . � . ' . ' _ . _ . ' '. ., . . _ . _ , - . ... � . . . .. . �. - . . - . . ". " . ' �� . � . � �l . . . . . . . � . . _ , ` , '��/ }.�f 1�, v - � � . . . . :. . � '. . _. � � � . . . � r , � . _ .. . - - � � . . � ` _ � � .. � �� . .- . � . . . .. . . . - _ � �. i . . _ . . . . . _ . . , _ Ms.. Peggy �teich�ert ^- . : , � � � Planning Cao�dinator : :r �. ' Ei��r H�all A�o;ex s ,Dear l�e, .F�sichert s - . � . _ f ` , , _ :_ The Citr Council today coneurr�d in t,he :recommendstion af t'�e - - City Deinslopment & Tranaportatioa Cormnittee and �et a 8�t,a af ' � - hearing Por June 16th, 1�81 to cona�der the Highwood 1)evelop�nt. - " Strstegy as approv�ed by the P3.euining Com�oiaasoa �toge'l.��r with. . . :' . , � s°-�rator3um P�P�B�. tiill you please ta�e the neeee�aary ��e�s i - � , to-notiPy the px�oper pe�aoils .and orgariizationa conc�rn�ng thi,is _ _ public heariag. _ , , - . � _ . Very truly yours, - i , , A1 Olsaa , . . " � C'i'�Y Clerk ,� � � /l80 sla _ - _ , . _ � ,-_ ;�:- � - , . ,' , , , _ � . _ � ' . , . . _ � � - _ _ ti \ . ,- , , ,: . . . _ � - . � �-'-- _ , � �. , :z�t,: .� , CITY' OF SAII�''T PAUL x" ' �� ` '"�. OFFIC� OF TIIE CI'�Y COIIYCIL : �� s. t f r.: ,( �. - 'r (!.�a:J9t7...+� <: � . . � . �:: �l��eli7f)Q��,n�P �-� , �)�p 1.,��°P It i.?-' . ��,t . r p o t e : May 7, 1981 �� , _ . ..__..- COMMiTTEE i� EP4RT' TO : 5oint Paul Ci�y Councii FRO� � Commitfiee Oi1 CITY DEVELOPMENT AND�TRANSPORTATION . � Leonard W. Levine� chairman, mqkes the fot lowing report on C.F. � . [� Ordinance Q Resolution . . �X] Ofiher . T !T LE : Hi ghwood Devel opment Strategy The Committee recommends approval of the . strategy and recommends that a public hearing be held by the City Council on this on �une 16, 1981 , with particular attention paid to the recommendation ' for an 8-month moratorium on land development on certain sites in the . Highwood area. ; (Attachment) � � _� ' � / . � -. . 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'Si,. . �; i i , a �; _ . .._:... _. .a..�. „ ...�:.:r_-�__..:. . .. ,.._ .: - :....., , ...�.. .4 ,._ ..�.�. .�__.�._��.,.. I ; ,�„�.��rs«��:° � � -_. ��,.�,.,�° , : � .��,:. �„„�'*''. � : ' M . . . . � -. . 1" t .. , � �5 �' �.��. �y.. .� . � . ' . _.� . .._2 '.'.'• ��- , �. / � . . . . . . �`� �� '- �.-: -. � . . . . � � � . � �rY�� 4 " �`yA. , ._ , . , . : .. , . ., , . � . . . .`.. . ., .. , . . ,,..� . . .,,. .. a ,.�; : C _ � . ' . . S \'` � �� , . .: .. ". v . . . . .:.. . � . . .... .. ' .�. . '. � . . . ' . . ' . .. . . : � .k t . � . .. . � . . . . . . .S r. . . . �� . ' " `. . '.` .. [ . . ` . . . . , . � .. .. . :... �. ' ''I. .. w.' . � � . . . .. � ��. . .... .. .� �. ' � . . ,.... �.�� . . . . �'.. : r.: ... �! .. .. . . � . � ' . . � .. . - ' . ' .. - `!. .. . .. . . . . � � , . � .� � . . � . . � � . . . . . . �r; . . . .. � � - . . - . � � � � .v�- .i . . - .. . .. � _ .. . . 'a � . . , .. . . . . ' . . . . .. . . . r �. . . ,. . . . . '�i. .:. : ... 'r .... . . . . . , . . , , y ,, . . .. , ,. , _ . .. . � . . . .. :. ,� � . . ... . . .. . .,. . .: .�, . '. . . - . . . . . ' � . . . . ., �,, �.. ..e . . :�.. �.�. , . - . . ' '. . � .' � � .-,- . . . .. . . � . . . ... ., .. �- �. . . . . � ._. -... . . . . � �.� �-�. . . . . -. :�rY : _ .. . , . . . . . . .. - - . � . , -. , . . .. . . . .. . ., - ' . !� � ' ._-� ;?�, �1� HIGHWOOD DEVELOPP�ENT--T00 MUCH T00 SOON? ISSUE PAPER BRIEF Vacant land in Nighwood is a precious resource. It features scenic bluffs, �vooded slopes and natural pond- ing areas. The land also has some potential for develop- ment to meet the City's housing needs. In many instances, this resource is not being used in the best a�ay. Jevelopment that has occurred has happened without the provision of streets, sewers and water service. The private market demand to develop housing is outrunning the City's ability to supply these basic services. In some specific cases this resource is be�ing v�asted-- and costing the City and neighborhood. Unmarraged develop- ment has intensifi?d land erosion because development has not been designed to accommodate stormwater run-cff. The City is not lacking adopted plans to influence Highwood develooment. Ti�e City policy szems well-set: develop Highwood, but develop sensitively; protect ponding areas and bluffs from development; locate streets and sewers in a way that will allow land to be developed while maintaining Highwood`s unique topography; provide complete (storm and sanitary) sewer service. � The breakdown in coordina�ion of Highwood development is not within city policy itself, but in maving from policy to implementation. St. Paul lacks some critical tools to effectively guide High�rood development. Lack- ing these -�ools severely restricts the City's ability to encourage sensitive development that complements the unique "country living in the city" flavor of the Highwood neighborhood. S�ecific actions are necessary in order to guide new development in High�vood: 1 . initiating engineering study for an official map; 2. completing and adopting subdivision regulations; , _ e _ _ _ _ ___ __ __.._ . , ,, 3. designating land d�velopment suitability class- ifications; 4. identifying administrative procedures for � ' site plan reviews; 5, developing an acquisition program for ponding sites; 6, developing a capital improvemen� plan. Participants in these actions wi11 include Highwood residents, the District l Community Council , the Planning Division, Public Works Department, Planning Commission, and City Council , as we11 as Ramsey County and Ramsey-Washington Metropolitan Watershed District. Completion of thESe actions will not force development, but rather will alloti{� the City to guide development in an orderly, ser�sitive way. _ ._ _..__. _ __ ___ --_ _ . --- - --__ _ ., � . � "��,' ) f'-q f�I C.y �� HIGH4•100D DEVELOPMENT-- T00 MUCH T00 SOON? A STAFF ISSUE PAPER OCTOBER, 1980 PJEIGHBORHOOD/HOUSING SEC1'ZON DIVISION OF PLANNING DEPARTMENT OF PLAI�idING AND ECO��IOMIC DEVELOPP�1EiJT CITY OF ST. PAUL 25 IJEST FOURTH STREET ST. PAUL, MI�JNESOTA _ _ , _ _ . __ . _ _ _. __ ._____ __.. __- y . � �_ :: CONTENTS PAGE I. INTRODUCTION. . . . .. ... . . .. . . .. . . . . .. .. . .. . . . . . . .. . . .. . . . .. . � . . . . . . .. . . .. .. . .. II. DEVELpPMEPlT ISSUES. . . . . ... . . . . . .. . . . . . . . . . .. . . .... .. .... .. .. .. .. . .. . . . .. .. . . � III.LAND DEVELOPMENT--THE FUTURE WITHOUT CITY ACTION.. . . .. .. .. .. .. .. .. . . .. .. . . . 5 IV. DEVELOPMENT COORDINATION TOOLS. .. . . . . . . .. . . . . . ... . .. � . ... .. .. . . .. .. .. .. .. .. . . V. LAND DEVELOPMENT--THE FUTURE 'vJITH CITY ACTION. . . . ... .. . .. . ... . . . . .. .. .. .. .. .. 8 VI.RATIOP�ALE FOR ACTIONS. . .. . . . .. . . . . . . . . . . . . . . ... . . .. . . . . . . . . .. . . . . .. .. . .10 VII.CONCLUSIO�J. . .. .. . . . .. . . . . . . . . .. . . .. . . . . . . . . . . .. . . . . . . . .. .. . .. . . .. .. . . . . .11 _ _ __ _ . ,_ . . . _____ ...:___ ..,._._ .__ ._ _..__.; ._ _,_�_. .� ; ,_ . _ , , . , � � � � � �� f'�°� ILLUSTRATIONS Illustratian Title Page Map l . Location of Highwood 2 ' Map 2. Vacant land (zoned residential� 3 Map 3. Ramsey County bluff open space 6 Chart A Actions for i�ighwood Implementation g Strategy ,. _ _ � ! ...4 . .. . . ... . . HIGHWOOD DEVELOPMENT--T00 MUCH T00 S00�? I. Ii�TRODUCTIOP� amm�g Division ata revea s t at t e ig woo neighborhood (south of Lower Afton Road between Highway 67 and McKnight--[�ap 1) has 20% of the City's vacant residentially zoned land. 4Jhi1e other parts �of _ St. Paul were developing, Highwood experienced limited grotivth. Steep terrain, lack af sewer and water service, unimproved roads, and land awners' choosing to hQld onto large properties have contributed to the "country living in the city" flavor that characterizes this neighborhood. (See t�1ap 2) Vacant land in Highwood has become a valuable resource. The scenic bluffs, wooded slopes and natural ponding areas are special amenities for the neighbarhood. The land also has some potential for development that can meet the City's housing needs. lJith the rising demand for housing and the declining supply of land for developmert, s�tes that were once passed over becau�e of rugged topography or lack of utilities may soon be vieti•red as "ripe" par�cels. In recent years, development in Highwood has escalated. Individual lots, platted long ago, are bein� built an. Large parcels, old farms, are being divided for development. Since 1974, the number of single-family houses bui7t in Highv�ood has risen from 364 to 528. Still , this d�v�lopment represents only half of the total capacity of Highwood land. II. DEVELOP�ENT S U Muc o t is eve opment is occurr�ng w�thout t e provision of streets, sewers and water service. The problem is economics. The demand in the private mark�t to develop nousing is outrunning the City` s ability to supply basic public services. The front-end cost af first-time construction of the major (trunk) lines is far greater than the revenue generated by special assessments. . Administrative considerations in providing basic services � add an ironic twist to the development process. Ideally, provision of basic services should follow a coordinated pattern--first, build the main, or trunk, sewer ]ines along major streets; install Nrater services, sanitary and storm sevrers and streets simultaneously; then, provide service to adjacent properties bv extending feeder, or lateral, lines from the trunF, lines. 1 , �_ _ _ - _ __.__.__. . ___.,__ .,_,..._ _ �m,�,. ___�.,�,.�,.�b_..��..�_.. . � � � � � � �� -� � ��"�' � �' � - // '� b is �ur = a � . N W � � � �� 1- � y„ � �..,, � „ *. � f�� °"' �, �;' �,.� � � ) �� .� -,.� � �, � � W `�� /' . . �'" � �� _� / � �� __ . .,. 15 '"�]' . � � � �. � . . . � ,� � , a °� � ' -� �J ^ u �,. _ C] b � ^ �E� " a O �� i �`' �� _, �v �u.0 j . y g� Lc w�am3 M ry��` . .T� � p \ 0 �I 4 < � " . � �� 1S W�B W y H � E is roR�+^' . _ \ \ �SMVis3M `'� ' � . I u w Li.. � 'id�-°J y �.3 �.,a� o , � � O i 's �"a` y �°' S �ay 4 � �� se �. .,,ws� W ' O � � 1S 3b � \ `. 33 } .. i } . . J � � � �, �, h �\��. 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VACANT LACJD (ZOiVED RESIDENTIAL) �� LO+VER AFTON p �' _ '.\ ii �' '� .. .::. ` . u , �°' - � ��"-'�'t� LONDIN LANE � l.=�a.•. , � :-•`��'+ •� ' . TOTENi � `'.`�G`�.oy `;�• TOWN � ,, rwtu�Nn Rn. . ,� .q :\ � . � . . `♦ 9,P �� . . � O�, . . ♦ ,•`�''� . . . . �� •:w»:• ,,.... HILLwr�04 DP,. . . . . . . . . . ... . �J�y., .'.'�;::�',q(7ry TO�r. � ` y,.?��.. . . . . . `,, ;y�T':�;:'� �''i��::� . � _�.:;�•.::•�� BURLINGTOY �, wi� +;'l:s: i.�� . .. \ :::::::::'S`::: , fl ��:::..:,w.. ; �.,�#�v: ,.;. �::.>::::� MIITTERHORN �, �:: •. .'•:::::: PIGS EYE ',� � a�� . N[LLIAMTELL LAKE SPRIN�SiDE ' .'�� • •r:•::::•:�•: � � > u::�:�:;:;; �.�f'.�'.: •:..,:.;, , � �:•:�•:::� � m_�::-6�..: , VALLEY VlEW � � 1�.....'::::::::::::.;•:::.•.�:.• H IGHWOOD '� s>::. :�'-o°r. � . � . Q��r,.�� _ :.:�,..::.i'- � . : . � :;::1,;.;'' ; - - — -� 06DEN AVE. ------ =`•�i:•.. ', . �E '"�.� DOUGLYN LA. : '. G (�---� SNOWSNOE LA. ,'3 �--'� BOXWOOD AYE. ',y: :�,� . •• -._._ . , . .°. "'�� MAR[LLAC l:A. ''�,� � � � �� CARVER ... .� . .� , � ;� , =:� ..... �� ,� ; � �� ====�-;; GftEENI.AND " ; �� `'�c__� ;' Mc6UIRE ,� , '�� <z�.� �� '; ;,_,, t �' �� ::�� :� . ;�� '� ;i \ P, `,•� ', ;R :::� �; �<� '�`=" BAfLEX ` ii . .p� ';i; .� . . \ . '�P� �`�` '� . r � t•>t � :.i� I \ ,� '' 1 3 ' _ . .._ --. ._ .�._ _._., _..__.__ . - __ ---_. _....._._ . _�.__,. __...._...._ _-___.....�.._....�._�,_�� ,.�..�..._ • .. ` ' � ,•i ` �.. g� ��/� . . . e:.�- � . � � In day-to-day practice, however, provision of streets, sewers and water lines is initiated by property owner petition. Regardless of whether or not the truak lines have been� built, landowners can petition to � have the lateral lines built. The new7y-constructed t�liggins Road, northwest of Surlington and McKnight Roads,has full-service street, sewer and water, but the storm se4•rer lines are capped because the City has not been able to provide the financing to build the connecting trunk sew�r line along Burlington Road. The economic and administrative problems of private develapment outrunning public services tie into an environmental problem. Much of the 1Gnd in Nighwood has steep slopes and unstable soi7s. Unmanaged develop- ment in Highwood and in neighboring Maple��ood has intensified land erosion because development has not been �+esigned to accommodate stormwater run-off. Increasing numbers of individual households' relying on septic tanks raises the potential of a malfunctioning system. Septic tank failures could cause se4�age overflows to adjacent properties and street right-of-ways. The environmental damage that is happening to the land , is felt in real-dollar cos�s to the pubiic. In the central part of the Highwood neighborhood, the Howard Street right-of-way has been "gullied out" by resi- dential d2velopment uphill . The rapid erosion in this ravine has caused it to become a project which is beyond the scope of the Ramsey County Soil and Water : Conser.vation District's cost sharing assistance pro- grams. Economic, administrative and environmenta] conditions have forced the City to try to keep pace at both ends of the development field: (1 )providing r�ew installations (streets, sewers, water service) along trunk lines before development occurs; and (2)providing maintenance and rehabilitation to eroded slopes and swampy areas. 4 �- _ � _,,.�_ , .. ._. . _ _. . , Coordinating the provision of basic services is one way of ensuring sensitive development. Another way is identifying site plan standards. At this time, the state exerts perhaps the strongest influence over site planning in Highwood. Because most of Highwood is in the state-designated P�ississippi River Corridor Critical area, development must meet the standards and criteria detaiTed in the "Interim Development Regula- tions for th� Mississippi River Corridor Critical Area". According to these iterim reg�lations, which are enforced by the Environment Quality Baard, no new structures should b� 6uilt on slopes 1�% or grea�er, new roads should avoid steep slopes and woode�i areas, and al� development proposals should fiave site plan : review. t�hen the City adopts the final version o-F the Mississippi River Corridor Plan, control of development on steep slopes wili be transferred from the state to the City. Planning Division staff will be responsible for pre- paring amendments to the St. Paul Zoning Ordinance which specify standards and criteria for new con- struction in the River Corridor Critical Area. Steep slopes cover more than half of the platted lots and 31% of the large parcels vacant in Highwood. Some of these slope areas will require detailed site planning to determine development suitability. Oth2r slopes may be too steep to build on. III. LAND DEVELOPMENT-- Pressures to develop land �n Nighwoo are i e1y to THE FUTURE 6�1ITHOUT continue. As of September 1980, 283 lots were platted CITY ACTION for development, yet remained vacant. 8Q/ of the platted 7and does not have utilities readily avai7able. , In addition, 149 acres of land rernain. in large, un- platted parcels. Nearly 50 acres of bluff land have been targeted for scenic easement acquisition by Ramsey County, but oniy one-fif�n� af �he land 'nas actually been acquired. (Map 3) Determination of how the resource of Highwood land is used can be set by City action. Left untouched, the Highwood neighborhood will continue to develop without the advantage of a coordinated extension of basic city services and without the mechanism for consistent evaluation of steep slope development suitabi7ity. The results over the next five years would be bleak: 5 ,. _ __ _. _ ,. - _ __ _ _�- --�-- -- _. . .�_. ,----_�_ . �_ --- , . . .__.. �_ .� � � '�� / MAP 3. RAMSEY COUNTY BLUFF OPEN SPACE i LOWEP F=TOi1 � � „::�:: Acqui red ;; .r.:�::��;�;. � `, H..:tiV{V�1�•• \ li . . � ::�•:�`�<:.::•� To be acquired • ti.;f,. ::� �, LQ:'IDIN ��;� . k.:;'is..'rk`�fi�'h . ' ��' � �. �Y � ri.}:. t?i:: !w '�:a,�;: TOTEM } �� TOWPl �'Py �^M i fA2+L r7. .q ,�.:.� � A %'�}.:7 � � . ,� r ��y. �`C �' H[LLWQG� D� S�� ,=l . or�s��c 2 � � . =«:z�`��/_'--__-'` l� BURL1Rd�?�.'{ . tio�-.�,�.`--" "_ "-'-- �. = �;jVZ r�;alir.-:;..i ; _ � `� '%'ILLU"-�=:. E L"-.�;= SPRINGSIDE � �.:>�>;;l ��% 1..t•''" � _ �; �`�>r ----- :��s, 4:;:':;::;:..: - - - `:r.LLE� � i;:%. : . , 3� �.. _ . KtcHw;�, ''� `'>';��., � `::;:;. _ , �.� � _ ` .:.�s�:�Y��: ,: _ a�eE: -.� �� '� z;':: � DOUGL°"� !n. ��xx �;.:�� x;:?• SNOI;c.�c �r. • ti:<�; �;�$ � BOXWp�� ;1�. — ;{� 1 - ��'t , - NARII;-,. t�?. :,� �� , CARVE�. \ , '� . .'' ,.xy�?? :� ��l��M1�� w;'ti. �'�•� ' ' ` �i;'�"��-"�"R� GSEEillr`Y9 �;+`-`:r;'�:; McGU1RE ' ::;..,::,. «;;:;,:� �� :;�.;.;�:.:i ,r. ��::�*� . �G'� :��>::.:. . .� ...i..:�:::�:� . . . �.e.:::.,-� . '$. :�:ii�i+� . � n+,:..� . `` . T� ��'r;'� . �&. k� � ,�`':" BAILEY .� :;� �� , , :, ` � ` ' .• � 6 ., . 4 � ��.: . ' � . . . � . '�.. . . . . � . � . � . ..� --haphazard placement of street and sewer lines; --continued preparation of lots for sale before major sewer lines are built to handle development; --septic tank failures on a large scale; --continued and intensified erosion; --"double payment" by homeowners for utilities (once for individual septic tanks and again for public sanitary se�,�ers); --filling and development of ponds that are needed for a stormwater retention system; --loss of scenic bluff views because of development; --increased road maintenance costs. IV. DEVELOPME�dT The City is not lac ing adopted plans or policies to COORDINATION TOOLS influence Higha�ood development. There are more than fifty recommendations in adopted city policies tha� affect development in this area. In addition to these recommendations, there are twa city reports which deal exlusively with Highwood and a district plan which commits one-third of its pages to diseussians and recommendations on Highwood issues. The city policies are well-set: develop Highwood, but deve7op sensitiveiy; protect ponding areas and bluffs from development;� locate streets and se�vers in a way that wi11 a17aw land to be developed while maintaining Highwood's unique topography; provide complete (storm and sanitary) sewer service. 7 � � - .. . . -,....� .� 1.,�r � V. LAi�D DEVELOPMENT--THE The breakdown in coordination of Highwood development FUTURE WITH CITY ACTION is not within city policy itself, but in moving from policy to implementation. St. Paul lacks the coordination tools necessary to effectively guide new development. The many, separate, adopted policies must be integrated into one, consistent implementation strategy, including: l ,initiation of an engineering study to determine hori- zontal and vertical grades for an official map of streets and sewers in the area; Z.completion and adoption of subdivision regulations; 3.designation of land development suitability classifi- cations; 4.identification of administrative procedures for site plan reviews; 5.development of an acquisition program for ponding sites and scenic easements; 6.deveiopment of a multi-year capital improvement plan identifying the timed construction of trunk sewers in the area; Chart A outlines responsible departments and end products for these proposed actions. 8 . _ _ - _ _ _ ____ _ �.�.._.� _ _. � �. CHART A. ACTiONS FOR HIGHl�OOD If�PLEMENTATION STRATEGY � REVIEIr1IPlG � ACTION CITY DEPARTMEidTS AUTHORITY � PRODUCT ; � �. Initiate engineer- Public Works Planning Official map r ing study for Planning Division Commission E offical maps City Council � 2. Complete and adopt Planning Division Planning Subdivisian f subdivision Public 6�Jorks Commission Regulations regulations Housing & Building City Council Code Enforcement i 3. Designate land Planning Division , Planning y Map of ?and development suit- Public 6�Jorks Commission development ability classifi- City Council suitability cations 4. Identify Planning Division Site planning administrative Housing & Building standards and procedures for Code Enforcement criteria; site site pian revie��s Division plan review Public t-Jorl%s process 5. Develop acquisi- Public ilorks Acquisition � tion program for Program ponding sites _ 6. Develop capital Pubiic Works TO-year Capital improvement plan Improvement Pl an 9 ., _ � _ _ ,, _ _. _._____�__----�_.._ _---___ . :�___...�,.�.�.._.,,..._,�,��..... �� VI RATIOf�ALE FOP. ACTIO�JS: 1 , Initiate engineering study �or official map. The Highwood Street an Sewer Plan suggests street and sewer patterns that allov�� land to be develo�ed while maintain- ing Highwood's unique topography. Minnesota Statute 462.359 (Procedure for Plan Effectuation; Official Maps} justifies the study and adop�ion of official maps because "identification on an official map of land needed for future public uses permits both the public and private property owners to adjust their building plans equit- ably and conveniently before investments are made wh�ch will make such adjustments difficult to accompiish". The development of an officiai map which specifies the horizontal as t•,�ell as the vertical aliqnments of streets and sewers in Highwood would inc7ude review by property owners and public hearings before the Planning Commission and the Cit,y Council . 2. Complete and adopt subdivision regulations. Sub- division regulations provide a process of identifying problems or areas that need coordination early in the development of lots for sale. It protects the City, the developer and the potential I�omeolvner. Subdivision regulations �vould be adopted as amendments to the City Zoning Ordinance. � 3. Designate land develoament suitability cla�sifications. More than one-third of the Nigh��ood land ava� able for residential development is on slopes which are 18� or greater. Strict application of an 18% slope standard in prohibition of development would substantially reduce potential construction. Study and� designation of s�ecific classifications of iand development suitability (based on so�l , slope and watershed eonditions) wauld give the City some measurable criteria to apply to site plan reviews for steep slope construction. 4. Identify administrative procedures for site plan reviews. Time y review o site plans for new construction is'�essential to the City's ability to coordinate develop- ment. The identification nf administrative procedures Would ensure that the issuance of building_ permits in Highwood are reviewed by key city departments in oraer to better identify where a development may run absolutely contrary to the engineering or planning goals for the area. 10 , _ * � 5. Develop acquisition program for ponding sites. Ponds that may e necessary for control ing stormwater run- off are not protected from development. An acquisition program would supplement the development of a storm � sewer system. A sewer system that uses ponding would be more cost-effective for Nighwood residents and the City than a system that relies tatally on piping. 6. Develop capital improvement plan: The identification � and phasing of trunk sewer construction projects is a strong guide to development. The District 1 Community Counci 1 and Publ i c 6�Jorks Department N�ou7 d i denti fy the need for trunk seti,rers, the phasing of sewer con- struction and funding priorities. To su�port the initiation of these six action steps the City should consider an eight-month maratorium on the issuance of building permits for lots without utilities. This moratorium would complement the Comprehensive Sewer. Plan policy to prohibit the sub- division or parceling of land on sites where sewers � are not available, and wauld slow new deveiopment in order to give the City the lead-time to develop the necessary coordination too7s. The short-term costs incurred by stepping back to form a comprehensive implementation strategy for Nighwood development seem great. New development would be postponed until the City has taken action to clearly set development priorities. The benefits af forming a comnrehensive imolementation sfir�tegy are also great. For example;. the timely set-aside of pQnding areas would provide considerable saving ln the cost of a storm sewer system for Highwood. A substantial portian of the year]y cost that Public Works puts out far maintenance and repair of ungraded roads would be recouped. ` VII CONCLUSIOiV Talk to St. Paul City officials and District l residents and there seems to be general agreement that development will come to Highwood. Questions now concern how development will come. 11 z. _ __ _ _ . __. __ �.... .__.__ * ,.. __ _ __ __ _._ _ _ � � ,-___ __ _ _ __ ��'�� The problem of uncoordinated develo�ment in Highwood is messy and complex. It intertwines economic, environmental , and administrative consideratians. A comprehensive strategy to coordinate development must also address many complex considerations. The Planning Division is convinced that, left untouched, Highwood development ►�vill continue in a haphazard direction. This route will be destructive on r�any levels=-eroding not only the physical -Features of the area but also the bucigetary capacities of individual property owners and the City. But, v�rith the initiation of the six actians proposed, the City will begin tu form the coordination too7s to guide development in a way that v��ill protec� the natural features of High�vood and allow for a r�asonable level of sensitive development. 12 . __ . _. __. _ _. _ . �. 1 'I k` 5 t '� � � ��. :� 3�� . � � 3 � � , � �' `� a�� ,,�; � � � � .#�� : � �a - . :, � . � � �, � �� u `F �. � � �. . � �.. � . t . HIGI-I1R�00D DEVELOPf-1E��T--T00 P9UCH TOQ SCO�a? ISSUE FAPER L�RIEF Vacant 1 ar�d i n Hi gf��rood i s a preci ous resource. It features scenic bluffs, ��ooGQd slopes and natural ;and- ing areas. The land also has some potential for devzlo�- ment to meet t��e City's housing needs. In many instances, this resource is not being used in th� bes� ti•lay. Development that has occurred has happened �aithout the provision of streets, sewers and �vater service, ihe private market der,}and to d�velop ilausinc� is outrunning th� City's ability to supply these basic services. In some specific cases this resource is being vrasted-- and costing the City and neighborhood. Unmanaged develop- ment has intensifie� land erosion because development has not b�en desigried to accommodate stormcdater run-cfi=. The City is not lackinq adopted plans to influence Highwoad development. Tf�e City policy seems vrell-set: develop Highvrood, but develop sensitively; protect ponding areas and bluffs from development; 1 ocate streets and setivers i n a way that vri 11 allo�v land to be developed while maintaining Highta�ood`s unique topography; provi�e comple�e (storm and sanitary) sewer service. The i�reakdo�-an i n coordi nati on of Ni ghti��ood devel opment is not witnin city policy itself, but in moving fram palicy to implementation. St. Paul lacks some critical tools to effectively guide Hightivood development. Lacl:- ing these ��ools severely i,estricts the City's ability to encourage sensitive development that com�lements the unique "country living in the city" flavor of the ` High4•rood neighborhood. Specific actions are necessary in order to guide new developm�nt in 1-ligh�•raod: 1 , initiating engineering study for an official map, 2, completing and adopting subdivision regulations; ,- � A f � f y� , , , ��s,: �.� 3. designating land d°velopment suitability class- ifications; 4. identifying administrative procedures for site plan reviews; �. developing an acquisition program for ponding sites; 6, developing a capital improvem�nt plan. Partici�ants in these actions will include Highwood residents, the District 1 Community Council , the � Planning Division, Public Works Department, Planning Ccmmission, and City Council , as w�ell as Ramsey County and Ramsey-r�!ashington Metropolitan bJatershed District. Coinpletion of these actions will not force development, but rather ti�rill allor� the City to guide development in an orderly, sensitive way. , � , HIGFiI�Q^D DEVELOPMENT--- T00 t,t�CH T00 SOOfJ? A STAFF ISSUE PAPER OCT06ER, 19AQ �dEIGNQORH00D/HOUSItVG SECTIOi�d DIVISION 0F Pl.AP�NIfda DEPARTMENT OF PL�1f�ivIiJG AP�D ECOfdOf�1IC DEVELOP�•7Ef�fi CITY OF ST. PR�1L 25 I�JEST FOURTH STREET ST. PAUL, t�1I�JrSFSOi'A y. � • , . . ,� . . � ' �� • COP�TENXS PAGE i. IiJTRODUCTI41J. . . . . . .. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . � II. DEVELOPMCPIT ISSUES. . . . . . . . . . < . . . . . . . . . . . . . . . . . . . . . .. . . . . . . . . .. . . . . . . . . .. . . . . � III.LAiJD DEVELGPi":EfdT--Tt�E FUTURE l�lITf-IOUT CITY F�CTION. . . . . . .. . . . . . . . . . . . . . . . . . . . 5 IV. BEVELOP;�iEidT COORDINRTIO�d TOOLS. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. . . . . . . . . . . . . � V. LAi��D DEVELOPP�fE��tT--THE FUTURE �dITi-i CITY �,CTIOh. . . . .. . . . . .. . .. . . . . . . . . . . . . . . . . . $ VI.R�,TIO^l,GLE FOR ACTIO�dS. . . . . . . . . . . . . � . . . . . . . . .. . . . .. . . . .. . . . . . . . . . . . . . . . . .. . . . .1C� VII.CONCLUSI0,1. . .. . . . . . .. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. . . . . . . . . . . . . . . .>> �s IL�.USTRATIOtyS Illustration Title pagP P1ap 7 . Locati on of Hi gh�•rood 2 Map 2. Vacant land (zoned residential ) 3 t4ap 3. Ramsey County bluff o�en s�ace 6 Chart A Actions for {�igha,�aod Inplementation 9 Strategy c •sau<< ;�una�. ai��. woa�. saui� �1�aa�p� ,�o �aa�aa�. 6uipua�.xa nq sai�.aadoad �.ua�pCp� o�. a��naas �p�noad °uay�. ��C�snoaup�.�nua�s s�taaa�.s pue saar�ias uaao�.s pu� �Cap�.�u�s `sa�inaas aa�.�r� ��p�.sui �s�.aaa�.s .�oCpw 6uo�� sau i� ,�antias °�una� ao °u�ew a��. p��nq °�.s,��.--uaa�.�.�d pa�.pu�p,�oo� p ;no<<o�. p�noys sa�inaas �LSLq �0 uo is�no�{d `�C��eapl •ssa�oad �.uamdo�anap ay�. o�. �.s iM�. �iuo.�� ue pp� sa��n,�as ��seq 6uip�noad u� suo��.�aap�suo� ani�.pa�s�u�u�p� � •s�.uatussassp �p��ads �'q pa�.p,�aua6 anuana.� a��. upy�. aa�.paa6 ap�. si sau<< (�una�.) aoCeu� a��. �.o uo��na�.suo� a�u��.-�.s.�� .o �.so� pua-�uoa� ayl •sa��naas �<<qnd �ispq �'�ddns o�. ��L�9p 5 ,�� a��. 6u�uuna�.no s� 6u�sno�� do�anap o�. �.a�,�ew a��n lad a�� u� pupwap ayl •s��wouc�a s� wa lqo.ad ayl •a�inaas aa�.�rn pu� saanlas `s�.aa.��s �.o uo�s�no,�d au�. �.nou�.�M 6u�a,�n��o s i �.uau�do�anap s tu�. �.o t��nW 3(1SSI 1N36JdOl3A3Q 'I I •pu�� poohtiy6iH �.o �'�.��d�� p�.o� au� �o �lpy �'�uo s�.uasa.�daa �uawdo�anap s�yT ` LI��S '8Z5 0� ti9£ �uoa�. uas�a sei� poorny6�H u� �.��nq sasno� �'< <u��-a�6u�s° �.o aaqwnu ay�. `tiL6l a�u�S '�.uawdo�anap ao�. pap�n�p 6u�aq aae �suaap� p�o °s�a�a�d a6,�e� •uo �<<nq �uiaq aap �06� 6uo� pa��e�d `s�.o� ��np�n�pul •pa�.��sa sey poor•��6�}{ u i �.uawdo�a,�ap `s��ea�C �.ua�aa ui •s�a�.�pd „ad�a„ s� par.la�n aq uoos �'pw sa��.�L��+� �o �� ao �Cyd�a6odo�. pa66n.� �o asne�aq .�ano passpd a�uo aaan� �.��. sa�.�s ��.uau�do�anap ao�. pue� }o �'�ddns Gu iu<<�ap a��. pu� Su isno� .�o� " pu�u�ap 6u�s�a ay�. ��.�p,j •spaau 6u isno� s ,�C�� at��. �.aau� u�� ey�. �.uawdo�anap ao�. ��.ua�.od au�os Sp(� OS�L pue� ayl •poou,�oqy6�au ay�. ao�. sa��.�uawe ��ads aa� s�aap 6u�puod ��an�.eu pu� sado�s papoorn `s�.�.n�q �iva�s ay� •a�,�nosaa a�q�n��n � auao�aq spU pooMy6�y ui pu�� ue�� (Z cie�� aas) •poou,aoq�{a�au s tu�. saz iaa�.��a�� .��;�. aon�l�- ��a a��. u i 6u�n�� 'a�uno�„ ay�. o�. pa�.n��a�.uo� an�y sa��.aadoad aSa p� o�.uo p�oy o� 6u�sooy� ,saaur�o pu�� pu� °sp�oa panoad�u�un `a��na2s aa�.�n� pu� aahias �.o �� °ui�aaa�. daa�.s •��.n�o.�6 pa�.iu�i� pa�uaia�dxa poo;�nt�6�� 6u�do�anap aaaM �n�d '�.S �.o s�a�d aau�.o al��t�i 'Pu�L Pauoz �'�lp��uap�saa �.u��n s,�'�.�� au,� �o %OZ Spu (L dp6�d--�.yp�u��6J Pu� l9 �'�r.i��iy uaan��.aq p�o� uo�.�.d aarr�o� �o ��nos) poouaoq�{6�au ___.poon�y6�H ay�. �e��. s��anaa 2�pp uo�s�n�p 6u�uue d 086 P!OIl�f1Q0211P!I 'r LNOOS 001 H�f1rJ 001--1P13WdOl3A3a QOO��H�IH �� > �' � . . �� . � `- Z i. �� ;, -- _____�_______. °`; ., � — _ 4, ��.�. -`�.. _ ..�,� �`� N CAE�w wF t�Ere� .vE � �s a7 .� 7 V/�J~.. - . __'_' � � � . � . . 50 QFVEl�VO.�. "t4r N RE'dlMO � � j6 � � . � „ � � � ?!rr�{kR� . ! � 9D Vaint^M NE. � � fUMEw � ST � � S � � � � � � ' . 1 �� f � � �i � � sp ycunc � s+�ec y .� � � '�,� �, 8 � x � � ��` � f� b 8 b � j � �� b � �` �� 's `��.i � � k ; � ,� rS s . , \ so a° �+` � � � � 4 �\ �\J tE#r�2ki cK tF�w��+ Ixxr - \, .r'� t � � b �� > � ' ,� � � , � � NC�(WN 'T 51 7 � �o ��,�G,� `�--� d , � �_ K � y0' .£ IWlF St S � � � �F. � N � � � Y Z � � �. . . v Ip�t �6 `�r 4 c t—� ' �� f.. srew+ . i � � ��, � >°�'` r j_ � ��f+t}EE...�\�S `fj .a?� g[ � � � � � � � L ..�� R:F St � �, C�T � � D v�.�.. ,� ��. �? --i � ,`, r -"•� � ;, on s� r�w sc � k �� _ ;,rr,.r�'A�aF � d�,' .w:�Y« sc �-'s O r S +.E..�.w• s \ Z ;o ra�a[m s ? Ryn s[ X' qf�. 1--a � �./[J � � �7 m �ye(i'N f'l � T EOf•Eirt'�}'� � � � . X ��\�[a ` �� Fl1Y�c M!y � y 9 . . I u �vn33yi N� � � i . � t-i � P `� t�4 I � /JiC/.OE SI � I . i- � YS7 tt � . a �T �. Si _-�_./ � � �� / �__/��,� ,,�"s ; � � ' ��/� ; � � �� _ � } � r. � - �-�` ��-��,,- � � ,� ,Z� ,, �, � � � , .,7�� !� P�a . � v�..rF tEw sE � . /�,/ r �� ^ (/��.�.� Q 4' ST � T y_y . �� / 1 / ,�,yM 311tr5 � - .. � ■''� v �% �i�m �R1P51 5[ � i - °`� � � � r/f,�!'�/' � ' IGr/ !�•J�r.7 I f�'�AP E. VACA'dT LA��D (ZOiIED RES I DEfdTIAL) � ;i �Lo'd:.° p�FTOti i' i' '.\ 1' :� �' �; . `�' � l� o��e�_r.�`a�� LG';C,.,, LA1E �� ;�� y ' `°;� ?OTE^7 �� ?C,�:N VfO �'l,�L'i;'iD P.D. � �� 9�� :�:; �� - "' HILi.h00D DR, . . ":rr:?:%i'.00/ `�� ''r�+ " Q� ��-. ,; cv; ; ;:� �4 c`'�'.'S»' r �;.i`a• �l� BURL,NGTON I ;;__ -. - -,�::::-�� - : ,..,. ..::�:::.:�.::.:::•. � ':�:::::::•<•:::.. . ir:...:::i:?:::i� i � � �;:��;;:;:::..' MATTcRHORN ' �� >.�. ':::�;:�; PIGS EYE ' � �` �- � • WILL':AMTELL LAKE SPR?NGSIDE � � '� •:::<;;:;�•: � � y:'!�; -.a��:�:`.�:.�: , ;";''J '�:<:;:•r:�: � ' �- — VPL�EY VIEW , � � �� HIG�'�'G01] �� •�?�:�.. ..:>:: �.�. � � ` ��'�:C4:: � . � ., - . C1v�,•?,4 �._� _ ,` ------=��i�::... O�t'EtV AvE. ;, . � D0�_GLYN UI. . , � Str'uhSHOE LA, SCY.«OOD AVE. �:', �� ,-P,1 .. ....... `9�,�\ N�.RILLAC LA. 1' '�� : :.�-�� CAR'vER . ;1 f� :� , • .. ;� _ ;� _ - �; •ti:=:s�=�� G�E="�LA"�D ', �-\ ��;,-�_:;� �, �MCSUIRE ;� c:<`}� �1 ;� }t t,.`;� 1 . \'�'i: .. �1 �,1 ��` �1 c ,, '1 �\ , 1, J 11.`�' a� ''� "�.��.:� ;,iLEY `�-ii :::a� . . _ � . _ �\ �:;i� �� .I \ � ' 1 3 In day-to-day nractice, .hovrever, provision of streets, sewers and water lin�s �s initiated by property oGVner petitiQn, Regardless of 4n:hether or �iot the truuk lines have been` built, landowners can petition to ha>>e the lateral lines built. The ne��1y-constructed �Jiggins Road, northwest of Burlington and P�1cKnight Roads,has full-service street, se�ver and water, but the storm sec�er lines are capped because the City has not been a1�1� to provide the financing to builc� the connecting trunk sewer line along Burlington Road. The economic ar�d administrative problems of private development outrunning public services �ie into an environmental problem. Much of the lar�d in Highvrood has steep slopes and unstable soils. Unmanaged de��eiop- ment in iligh��ood and in neighboring �laplewood has ' � int�nsified iand erosion bECause development has not beer� designed to accommodate stormwater run-off. Increasing �iumi�ers of individual households' relying on septic tanks raises the potential of a mali=unctioning system. Septic tank failures could cause sewage ovzrflo�vs to adjac�nt properties and street right-of-vrays. �lhe environmental damage that is happening to the land is �felt in real-dollar costs to tE�e �ublic. In the central part of the Flighwood neighborhood, the Howard Street right-of-4vay has been "gullied out" by resi- dential development uphill . Tf�e rapid erosion in this ravi ne has caused i t to become a project ��i cF� i s beyond t��e scope of the Ramsey County Soil and �!ater Conservation District's cost sharing assistance pro-- grams, Economic, administrative and enviror�mental conditions have forced the City to try to keep pace at both ends of the development field: _ � (1 )providing new installa�ions (streets, se�-rers, water servic�) along trunk lines before development occurs; and (2)providin� maintenance and rehabilitation to er�ded slopes and swampy areas. 4 � � .- � � �`��►��7 Coordinating the provision af basic services is one vlay of ensuring sensitive development. Another way is identifying site plan standards. At �his time, the state exerts perhaps the strongest influence over site plannirg in Nighwood. Qecause most of Nighwood is in the state-designated Mississippi River Corridor Crii,ical area, development must meet the standards and cri�eria detailed in the "Int�rin Development Regula- tions for th° t�ississippi River Corridor Critical Area". According to these iterim regulations, which are enforced by the Environment Quality Board, no new structures should be built fln slopes 13°6 or greater, ne�,r roads should avoid steep slopes and �aooded areas, and all development proposals should have site plan review. t�lhen the City adopts the final version of the Mississippi River Corrido►° P1an, control of development on steep slopes will be transferred f rom the state to the City. Planning Division staff will be responsible for pre- paring amendments to the St. Paul Zoning Ordinance ti�ahi ch speci fy standards and cri teri a for neti�v con- struction in the River Corridor Critical Area. Steep slopes cover more than half of the platted lots and 31% of tne large parcels vacant in Highwood. Some of these slope areas will require detailed site planning to determine development suitability. Other slopes may be too steep to build on. III. LR1�D DEUCLOPMENT-- Pressures to de�,�elop land in Highwood are li ely to TNE FUTURE tJITHOUT continue. As of September i980, 283 lots were platted CITY ACTION for development, yet remained vacant. 80% of the platted land does not have utilities readily available. In addition, l49 acres of land rem�in in large, un- platt�d parcels. Nearly 50 acres of bluff land have , � been targeted for scenic easement acquisition by Ramsey County, but on�y o3,e-fi f�n af �he ?a�d i�as actually been acquired. (Map 3} Determination of havr the resource of Hiohwood land is used can be set by City action. Le�t untouched, the High��rood neighborhood wil] continue to develop without the advantage of a coordinated extension of basic city services and without the mechanism for consistent evaluation of steep slope development suitability. The results over the next five years Vrould be bleak: 5 t��AP 3. RAMSEY CDUr�TY BLUFF OPEN SPACE ;� LOk'ER AFTOtJ ��>::: Acqui red �; ::::>:�:<::>;::>::::; � �: � , . ¢ �� To be ac uired " �.....�.... .,.. Q �� i LQfJD]^� LANE ` ro�: �v i . e�. ,.�`'�� TpTEM • T041N `�; ; '~AILI;fJD P.D. . �^F ��f{:Y`=;: . . . `\ h� ,�nM`t� ' HILLWOOD DP. � . ; i:>;�.. . r,.. ; � �.C�q�, � �y._. � ..::r:=� t, �>I�.•":•'��.��' l� BURLI"dST�N ;.;. - - ---- � Q.:: _ ';, - I ':�v_ � � :ti ��'ATTERHO.°,°d , W:LLIkMTELL '!E LAKE SPRINGSIDE � `.:s:�`•;:� .'� I �' � � - 1' :� =— — VF�IIEY VIEb! � Y .� 1 � , �. HIGHhOCO ��, %s';,�" v., ...�,` - ' ��'x_ ', .�;: ;., �; 06DE��' AVE. �fr � DOUGLYN LA. . �, . ', o...,, . . � � <>:;:: :?;:•;•:. � <::;{': �"�� SNOWSNOE �A. .4'``;:•' �J �' B0�'Y:OCD AVE. �'kr:� . '1�X� �Y'r i1� ,'� �'�:;`.>, MARII I AC Lf1. �� 'o-�. C,ARVER ', t� . . �y�y4y4v'ti�i�•,:�•4Yii:�.1 . � ��, ' i..}•�: i1:){'1 � � h¢'{':':��'v'R�� . . •i `::iiT� '�'''>^:iih4� �+;'="%�'-i'.c:,:� GFEF'iLAPJ!' (\ ` +� McGi!IRE � :� . - .>;'.<;>;� ,. .: . ��'�.'''..J�� . 1:1 \�\ ; 11 y ` :�,� �Q'LFI . . .. `\ `•,'f�, . � \� �'1�,V�I I _ � �� — M --haphazard placement of street and sewer lines; --continued preparation of lots for sale before major se�ver lines are built to t�andle development; --septic tank failures on a large scale; --continued and intensified erosion; --`'cl�uble payment" by homeowners for utilities (once , for individual septic tanks and again for public sanitary sewers); --filling and d�velopment of ponds that are needed ror a stormwater retention system; --loss of scenic bluff vievrs because of development; --increased road maintenance costs. IV. DEVELOPMEIdT The City is not lacking adopted plans or palicies to COORDI;JATIOid TOOLS • inf7uence Nigh,aood development. There are more than firty recom^�endations in adopted city policies that affect development in this area. In addition to these recorrr�nendations, there are two city reports which deal exlusively u�ith High�NOOd and a district plan which commits one-third of its pages to discussions and recommendations on liighvrood issues. The city policies are ��E�71-set: ' develop Highwood, but develop sensitively; protect ponding areas and bluffs from development; 1 ocate streets and sewers i n a way that vri 11 al l o�rr � land to be developed while maintaining Highwood's unique topography; provide complete (storm and sanitary) sewer service, 7 V. LAtr'D DEVELOP�IENT--THE The breakdow�i in coordina�ion of Nighwood development FUTURE 4JITN CITY P.CTIOPv is not within city policy itself, but in moving frem policy to implementation. St. Paul lacks the coordination tools necessary to ef�ectively guide new development. The many, separate, a�apted policies must be integnated into one, consistent in�plementation strategy, i ncl��di ng: l .initiation of an engineering study to determine hcri- zoni;al and vertical grades for an official map of streets and sev�ers in the area; 2.completion and adoption of subdivision regulations; 3.designation of land development suitability classifi- cations; 4.identification of administrative procedures for site plan reviews; 5.development of an acquisition program for ponding �ites and scenic easements; 6.development of a multi-year capital improvement plan identifying the timed construction of trunk se4vers �in the area; Chart R outlines responsible departments and end products for these �roposed actions. 8 C�lAKT A. ACTIONS FGR HIGHl�100D If�1PLE�F1ENTATION STRP,TEGY ( � � REVIEhdIP�G ! = ACTION CITY DEPARIMEi'STS i AUTHORITY , PROQUCT , � + ' � 7 . Ini ti ate engi neer- � Publ i c l�for�;s � P1 anni ng � Offi ci al map ; ing study for ; Planning Division i Commission E ; offical maps � ; City Council ; �, i � 2. Complete and adopt I Planning Division Planning Subdivision ; subdivision Public t-Jorks Commission Regulations � regulations Nousing & Building � City Council � Code Enforcement I � 3. Designate land � Planning Division Planning Map of land � development suit- � Public t�lorks Commission development � ability classifi- ! City Council suitability cations � �4. Identify Planning Division Site planning� administrative � Nousing & Building standards and ,�rocedures for Code Enforcement crite�ia; site site plan revieti-rs � Division plan review � Publ i c t�lorks rocess � �5. Develop acquisi- Pub7ic iJorks �cquisition I tion program for � 1 � Program pondin sites 6. Deveiop capital Public IAlorks 10-year Capitai improvement plan Improvement Plan � 9 VI RATIOl�;1�LE FOR ACTIOPJS: l . Initiate engineerinq study for of iczal r�ap. he Nigh4voo�-Street and Se4rer Plan suggests street and sewer patterns that allow land to b� developed while mainta5n- ing !-�ighwood's unique to�ography. Minnesota Statu�e 462.359 (Procedure for Plan Effectuation; Official i�laps) justiiies the study and adoption of official maps because "identification on an official map of land needed for future public uses nermits both the public and private property ovrners to adjust thEir building plans equ�t- �biy and conveniently before investments are made vah�ich wi13 make such adjustments difficult to accomplish". The development ef an official map which specifies the horizontal as t�rell as the vertical aliqnments of streets . and se�vers in Highv�ood would include review by property owners and public hearings before the Planning Commission and the City Council . 2. Con�pl�te and adopt subdivision regulations. Sub- division regulations provide a process of 7dentifyir�g problems or areas that need coordination early in the development of lots for sale. It protects the City, ti�e developer and the potential homeot�ner. Su�division regulations vrould be adopted as amendments to tr�e City Zoning Ordinance. 3. Ces�gnate land develo ment suitability classifications. More th�n one-third of the Highvrood land ava� able for resider�tial development is on slopes which are 18% or greater. S�rict application of an 18% slope standard in prohibition of development would substantialiy reduce potential construction. Study and designation of s�;ecific classifications of land deve7opment suitability (based on soil , slope and ��atershed conditions) wauld give the City some measurable criteria to apply to site plan reviews for steep slope construction. 4. identify administrative procedures for site plar� ` revie s:Time y revietiv o site p ans for neti,� construction is essential to the City's ability to coordinate develop- n�ent. The ident�fication of administrative proc,edures ��rould ensure that the issuance of building permits in High��rood are reviewed by key city departments in oraer� to better identify where a development may run � absolutely contrary to the engineering or planning gaals far tM� ar�ea. 10 , ` Fs / ��7-J� ' 5. Develop acquisition program for ponding sites. Pcnds that may be �ecessary for control ing stormurater run- off are not protected froin development. An acquisition program would �upplement the develo�ment of a storm sev�er system. A seuaer system that uses pondi ng ti-aoul d be riore cost-effective for Nig'r�wood residents and the City tf�an a system that relies totally on pipina. 6. Develop ca�ital improvement plan. Tl�e i�enti-Fication and phasirg ef tr�nk sewer construction �rojects is a strong guide to development. The District i Community Counci 1 and Publ i c l�lorks Department ��oul d i denti fy the need for trunic se�srers, the phasing of sewer con- struction and funding priorities. To subport the initiation of these six action steps the City should co��sider an eight-month moratorium on the issuance of building permits for lots ti�vithout utilities. This moratorium vrould complement the Comprehensive Sevrer Plan policy to prahibit the sub- division or parceling of land on sites where sewers are not available, and would slow new development �r, order to give the City the lead-time to develop the necessary coordination tools. ` The short-term costs incurred by stepping back to form - � a comprehensive implementation strategy for Highwood development seem great. Nevr development v�ould 6e postponed until the City has taken action to clearly set deve7opment priorities. The benefits of forming a comprehensive implementation strategy are also great. For example, the timely set-aside of ponding areas vaould provide considerable saving �n the cost of a storm sewer system for Highwood. A substantial portion of the yearly cost that Public Works puts out for ma�ntenance and repair of ungr�ded roads would be recouped. UII CONCLUSIOiV Talk to St. Paul City officials and District � residents and there seems to be general agreement that aeveloprnent vai 11 come to Ni ghwood. Qt�esti ons now concern ho►�a development vrill come. li � ., � . . - � . + L . - • e . • The problem af uncoordinated development in Highvrood is messy and complex. It intertv�ines econ�mic, environmental , a�d administrative considerations. A co��prehensive strategy to coordinate development must also address many com�lex considerations. The Planning Division is convir�ced that, left untouched; Highv�rood development wi11 continue in a haphaz�rd di recti on. Thi s route �rri l l be destructi ve on many levels--eroding not on7y the physical features of the area but also the budgei;ary capacities of individual property o��rners and the Ci t�. But, with the initiation of the six actions proposed, , the City tivill begin to form the coordination tools to gui de deve�i opment i n a way that ��i 11 protect f;he na tural features of Highwood and allow for a reasonable level of sensitive development. 12 r - � �:.��P� �'�l�� '';; �� °°--�:� CITY OF SAINT PAUL INTERDEPARTMENTAL MEMORANDUM DATE: January 22, 1981 T0: A1 Olson FROM: Nancy West/�`� RE: Agenda Item (Highwood Development Strategy) for City Council Enclosed is a letter of transmittal and a copy of a Department of Planning and Economic Development report, "Highwood Development -- Too Much Too Soon?", which has been recommended by the Planning Commission as the Highwood Development Strategy. Please place this matter on the agenda for their information at a future City Council meeting. As per discussion with Karl Neid, I understand that the Highwood Development Strategy will now be scheduled for a City Council meeting and, upon reaching City Council , will be referred to the Council 's Development Committee. Thanks for your help. If you have any questions, please feel free to call me at -6235. ENC: Highwood Development Strategy Letter of Transmittal From Mayor Latimer cc: Peggy Reichert Karl PJeid ��.M��. v: