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275971 WHiTE - CITY CLERK ��J��!!! }}}��jj{ PINK - FINANCE j f�C� /�. CANARY - DEPARTMENT G I T Y O F S A I N T PA LT L COU[ICII N i ! BL.UE - MAYOR File N . ' Resolution Presented By Referred To Committee: Date Out of Committee By Date WHEREAS, A municipality may, pursuant to Minnesota Statutes, section 462.353, carry on comprehensive municipal planning acti- vities for guiding the future development and improvement of the municipality; and WHEREAS, The Council of the City of Saint Paul may, pursuant to Minnesota Statutes, section 462.355, subdivision 3, adopt or amend a comprehensive plan or portion thereof after a recommenda- tion by the Planning Commission; and WHEREAS, The Planning Commission has in substantial part recommended adoption of a Land Use Plan as a part of the City comprehensive plan; and WHEREAS, The following action by the Council of the City of Saint Paul is not an implicit adoption of a comprehensive plan of 1963 or other portions thereof recommended by the Planning Commis- sion; now, therefore, be it RESOLVED, That the Council of the City of Saint Paul does hereby adopt the Land Use Plan (a copy of which is attached hereto and marked Exhibit A) , subject to such review by the Metropolitan Council as may be required by law. COUNCILMEN Requestgd by Department of: Yeas Nays Hunt Levine (n Favo[ Maddox ,� nncnnano� A ainst BY showa�te g Wilson NOV 2 0 1980 Form Ap o d by City At r A pted by Council• Date � � Certified Pas by ncil cretary BY ` r s pro by :Nayor ate �V ,�� Approved by Mayor for Submission to Council By BY ��.�4•Ji:�U ��:; W 2 � 1980 .. . . .. .. ' ., � � ' � � .. � - .�< � .. . .. ,� :;. ...,... ,.. . ,,.,.,. � ;, . az;ti r I ; �, �. ,� , 71 � ; '�� , .. � ; r � , � r � ;R��1�1�� ,'. . � , ; , �; � � , , : - , .;; - L- , - ' ` . i' ; / � , ,,` � . � . � � 1. �. . � . . ; - ' ; �� - ' . ,� . . . i _ . : � � , _. - � OC'�ob�x 3p j 198,0 , . � �, . .. . . . . \ . . . . . . .. ,. . . . . . . . .. .. ' . . . . . . � 4� � . . . l ' �. � - � ', - . .. � . . . , � ' . ,�:. � . : • � � �`.. - . . � . . . . ,k. � � P��g Qaord�ae►�or : . � 12Lh 1►loor', City As]l Aar�ex; � �� t. I�eul, �i.. , ; ; . � � , . � , � = Re,: Le�nd u�te elemsnt o! the Str Fiw7. -+t��reb�►af�r!e Plab. ' , _ -; Dear_Bir . . 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' -. . . . � . _ . i �� •�� r'. t' �� . . . � _ - , .. _ � t t ° ,� `� r �� .. ... . � ., ' . ., � � , ,� � � _ � � • . . . � � 4. `� i ��y �� , � . . . . . . . N . ,�l, �� ,�:�' . ' ., � , �. . � � . � . . . � . � - . , , . � � � - . . . __ .. . . . �'-�� •- ' . . �i,• ;. i•- `•.,j,\`t .. .. _. _ _.- - — - - � �� .. � . . ��-t� ��'k%'�'—'L. . ,r � � , ( .,� �.�, � . ._ :, _ - -: p� � e : October 24, 1980 , :\_ ,!� � . .�__'�' �,. , ;. - C V �l�1 � . � � 1 [ t._. � � '�r'�....' d_, �� S--:ti '� �� ' - • , . . .` _ _ . � p , ��n� Pc�ut �ii;� �c�nci� . . , ' �_ � �' � �} y� = C�i t�i71 i;�E� �� CITY DEVELOPME��T AND TRANSPORTATION � - � Leonard W. Levine ; �fi�3i�ric�, rackes ��e fioticsiinc� . _ t ' • � Orciinance � �epori on e. F. . � _ . . � � � R�soiu'rior�� . . . . � • �X� ��ht.:t' . . � �'�` �� : Land-U5e Element of the St. Paul Comprehensive Plan - - � - The Gommittee recommends approval . • 5:�1�!' F'::L�i. `t:��'_';�ic.� >>:�� ,� .> _,� �� . � � ! . Y I�__.L SE'.� C'._\�a� I'I, -. - l � � �e,,�lTY�o,� CITY OF+' SAINT PAUL �;� ''� ��o�'� OFPICE OF THE MAYOR �`��d � �i1i111i11i� s . . �+ltlif 1'li II� C �� s`' 347 CITY HALL �� SAIIQT PAUL, MINNESOTA 551a2 GEORGE LATIMER (612) 298-4323 MAYOR September 18, 1980 Ron Maddox, City Council President anc� Members of the St. Paul City Council 7th Floor City Hall St. Paul , Minnesota 55102 Dear Council Members: I am pleased to refer to you the Land Use Plan for the City of St. Paal . This Plan was certified for adoption by the Planning Commission at their September 12, 1980 meeting. The Plan has been through considerable review and public discussion. A major draft was finished in December and sent out for public review. After extensive discussions, with district councils, neighborhood grou;�s, deveaopers,. businessmen and citizens, the plan was redrafted and again aiven public review. The Planning Commission public hearing on August 22, 1980 allot��ed for final comments and suggestions which the Commission considered in the draft presented now for your adoption. Two elements highlight the alan's directions for St. Paul. First, is its conscious effort to meet new land use demands vrhile seeking to maintain important physical and environr�ental characteristics of the city. Tt is the city's present character which attracts families and businesses to locate and rer�ain here. The plan's policies direct new development so that it ��ill build on the good qualities St. Paui nov� has. The Land Use Plan's policies encourage higher density mixed use development as the best means to meet shifting demands while building on the ci�y's existing attributes. In a decade of increasing housing demands, ener�y shortages, and more households seeking employment, high intensity development can provide needed new development. To successfully r�ix uses and to introduce higher densities in St. Pau1 , the Land Use Plan policies strengthen the design and site planning requirements. Excellence of design must be demanded of neti� development if it is to attract people to live and work in St. Paul . I recommend your adoption of the Land Use Plan as part of St. Paul 's Comprehensive Plan. Sincerely, _, , --� Georg Latimer �layor cc: Rose Mix, City Clerk Ed Starr, City Attorney James Bellus, Planning Administrator � � ¢-T-- John Connelly , � � �:5�'71 � � LAND U�E RLAN 1 � 1 � � ' 1� � �� :� ;r :� 1 � I 1 . 1 � . � COMPREHENSIVE PLAN SECTION DIVISION OF PLANNING DEPARTMENT OF PLANNING AND ECONOMIC DEVELOPMENT � CIT.Y OF SAIN:T PAUL CITY HALL ANNEX 25 WEST FOURTH STREET, SAlNT PAUL, MINNESOTA, 55102 � � ' � .D � � D 2'�5�r1 � � ST. PAUL LAND USE PLAN JULY 1980 � � St. Paul has been characterized as a "fully developed" or "built up" city. But, no healthy city is ever fully � developed and static; it is constantly evolving and adap- ting to new needs. Pressures for change in land use patterns during tMe 19�s will be generated by changes in population characteristics and energy supplies. The , � central issue addressed by this Land Use Plan is the pressure generated by additional demands on a limited supply of land. Since there is very little developabTe , vacant 1and left in St. Paul , the city must mak� innova- tive �se of its scarce land supply. During the 1980s, . four crucial factors will affect demand for land in St. Paul, (1 ) increased demand for housing; (2) jobs; � • (3) energy conservation; and (4) pressure to maintain St. Paul s existing character. � � � The population in the Twin Cities, especially in St. Paul , is aging. .More adults, both young and retired, are postponing marri�ge and living alone or as couples � without children. 0'ther households, because of divorce, are headed by a single parent. This change will create a continuing deman� for more housing units in St. Paul. � At the same time, jobs are needed to employ the adults in these households. Even among two adult households, the � trend is overwhelming in the direction of jobs for both adults. While overall demand for jobs is rising, the nature of work in St. Paul is changing. More �obs are ,; ;:, being created in office and service employment, rather � than in traditional industrial pursuits. The city will .. : be required to find space for new employment activities; ; �.;� � yet strive to use its strong industrial base more effi- � ciently. The trends in housing and �ob demand are being compounded by the shortage of energy resources. Increased energy ' costs, especially for transportation, may well make St. Paul an attractive choice for young adults from throughout the metro area wha will be seeking a place to � 1ive and work. The city is centrally located within the region, and has the capability to acconmodate the new demands for energy conservation. St. Paul 's basic patterns of living, working and recreating were esta- , blished in an age when energy supplies were limited, especially for transportation. Without ma�or alteration � of the city's existing fabric and life-style, St. Paul can become increasingly energy efficient. The transit DIVISION OF PIANNING • DEPARTMENT OF PtANNIN(3 AND ECONOMIC DEVELOPMENT • CITY O�SAlNT PAUL ' �: CI7Y HAl.L ANNEX • 25 WEST FOUHTH STREET,SAINT PAUL, MINNESOTA 55102 • TELEPHON�:812•296�4151 � I f � system can be expanded. Existing housing can be insul- ated and alternative energy sources for home heating can be explored. New development activity can be clustered � to reduce transportation energy consumption and costs and _ _ to provide. opportunities for efficient central heating. St. Paul 's response to the new demands of the 1980s must � be carefully p�anned and implemented to preserve and protect �he fea.tures of the city which are its assets. � Foremos� among these. is its overall character, which has ` 6een- she�ed by topographic elements like the bluffs and the M�ssissjppi River, by historic and cultural forces err�odied in the city's landmarks and histaric sites, and � by cohesive and identifiable neighborhoods. The city also incorporates some very unique and sensitive environ- � mental resources which must be carefully managed to � remain viable within an urban setting. The new land use demands will create opportunities to �'mprove the city's character with attractive new development. � A ma�or city function is to allocate land to most effi- ciently meet the changing space demands created by human � activities within St. Raul. The Land Use _Plan will be St. Paul 's guide to evaluating proposed changes in the locations and intensities of various types of land use activities. By anticipating and planning for change, the . �� city can encourage and support actions that will continue to make St. Paul an attractive place to live and work. To do this the city will maintain its conmitment to neigh- borhood stability, economic development, and energy t efficiency. The Land Use Plan will also act as the basis �` from which the city can redirect proposals for change � that might otherwise negatively affect the quality of i � ;'�` ' life in the city. The policies set forth in this plan, therefore, are guidelines for the changes anticipated in � i , the 1980s. � Cit Character and Environment °�>�; j' i e St. au see s to accomnodate shifting land use demands, it must protect the character of the city and � manage its environmentally sensitive areas. To do this the city will : 1. Identify and protect important landmarks and physical � features, historic sites, and views and vistas. 2. Imprave neighborhood identity, protecting the scale � and intensity of development, and promoting good design and landscaping. � i „ � ' �. ' Y � , 3,Improve connections to downtown, re-establishing continuous development from ad�acent neighborhoods. 4.Enforce ordinances dea1ing with land use co�flicts and ' nuisances. 5.Do subarea water drainage plans. 6.Control excavation and filli:ng, ,and development in , . sensitive areas. Mi xed Use C1 usters : rea �g s tes n St. Paul for intense mi>�ced use develop- � ' ment offers the best approach for St. Paul to meet competing land use demands. By mixing housing, carmer- � � cial: and employment opportunities in one intensified area, , , opportunities for different forms of urban living and for energy conservation will occur. Mixed use clusters are possible in the downtown, as part of ma�or retail centers � and in new employment/housing opportunity areas in - �t. Paul. To support mixed us� clusterin�, St. Paul will : 1.Study eacfi mi xed use cl uster opporturri ty area to deter� , mine its planning, market, and financial feasibility for c1ustering. 2.Establish the necessary controls and incentives, to ' encourage mixed use clustering on feasible sites. -- -- -- - - -- Housin �mber of separate households in St. Paul is pro3ect- ,' � - ed to grow from 109,400 in 19� to 112,000 in 199Q. The new households wi1`1 be formed by young-singles and child- less couples and divorced adults. In addition to olde.r � empty-nesters, these new households will create a demand � for more smaller housing units. If St. Paul is to stabilize its popu]ation it must provide hQUSing units � for the new households forming in the city. It needs to improve the housing supply available to people at all stages of their lives, if these people are to remain in , .� �, the city. To meet d�mand for more varied housing oppor- �"` tunities, the city will take the following land use actions: tl.Encourage the supply of new high density housing in designated mixed use cluster areas. 2,Establish criteria for altowing higher density new ' housing and conversion of older single family homes in existing residential areas. 3.Maintain the quality, cfiaracter, and goad physical ' , condition of the present residential areas in St. Paul. ' . . � , iii ' r Comnerce � � S�u�'s comnercial areas were inherited from several historic stages in the city's development. These areas were developed under different economic, demographic, , � �:M - and transportation patterns. Today, the emphasis is shifting again to meet new constraints on commercial - development. Each com�nercial area needs the flexibility � to maintain attractive settings for St. Paul shoppers and residents. Ta enhance the St. Paul 's comnercial �R areas, the city will dv the following: ��; i U �{ � � �°' � I�i�m, ��:. � �. . . .: ' . �x � �" '�'��, 1.Support expansi on of commerci al opportun i ti es i n the �� 4- designated mixed use cluster areas. . 2.Support neighborhood and mixed use strip areas to main- r tain their comr�ercial activities. 3. In neighborhood and mixed use strips, allaw conversion of unused comnercial space for housing arid o�her non- � comnercial uses. 4.Enforce existing ordinances and regulations pertaining to business location and operations. � 5. Investigate perfo►�nance standards and bonding proce- dures to maintain compatibility in mixed use areas. Indust � 70,0 0 obs in St. Paul are dependent on activities occurring in the industrial areas of the city. While employment opportunities in St. Paul are shifting away ' from traditional manufacturing jobs, the city needs to retain its base of industrial apportuni�ies. .The city will maintain its stock of industrial land but seek to use it more efficiently. Especially important is the � need to work with local industries requiring expansion space. To accomplish these ob3ectives the city will do the followting: , 1.Encourage the retention and development of labor inten- sive light industries. , 2. Assist industries who desire to expand or relocate within St. Paul. 3.Encourage conditions which allow the mixing of appro- priate light industry with hoasing and cormercial , activities. '. ' • . � iv ' ' e 1 • , ' Recreation and 0 en S ace - s n recrea ona mand are being caused by a resi- dent population with fewer childr�n, nqre athletically � _ .active adults, and more seniors. These groups. may cause `�har�ges �in recreation demand at St. Paul 's parks. The � city wi11 meet changing demands'for recreation by: ' 1.Maintaining and upgrading existing facilitie's rather , than expanding park space. 2.Limi��.ng expansion to areas defined in the Parks and � � Recreatian Plan and to opporLuntties to �obtain land for a linear park system in the city. � -- -- -- --- , . •:Institu:tional Lands� . . : nst tut ons suc a� schools, churches, co11 eges ;and . � clubs provide major assets to St. �aul. Zn ma�ny �cases � they create open space for the city's residerits. : The growtM ar abandonment `of institutional proper�ty in St. Paul has created some problems. To mana�e growth or reuse of institutions the city wi11: � ' 1.Discoura e ex ansion of institutional uses into land 9 P being used for housing, comnercjal , or industrial � � activities. 2.Give preference to conversion of vacated institutional • land to residentiaT uses, including allowing flexi- ' bility in zoning controls• related to new uses in vacated institutions. . "� � . � Trans ortation , e ra roa ines and airports in St. Paul have a major effect on access to the city and on ad3oining land uses. They not only attract various types of comnercial and ' industrial enterprises but also create restrictions to development. Railroad rights-of-way are a ma�or resource which cannot be replaced. The airports provide ready , access but create noise and safety problems for ad�oining development. �n order to protect these important trans- portation activities but also to pranote appropriate development, the city will do the follawing: ' 1.Study railroad land uses and seek protection of rail corridors and develo�nt of excess rail lands. � 2.Wark with the Metropolitan A�rports Conmission to develop master plans for Minneapolis-St. Paul and Holman Airfie1ds. These plans should provide safety � and noise protection but maximize develo�nent oppor- tunit�ies for ad3acent land to the greatest possible extent. ' � ! , � � .� - � Im lementation ' e an se lan provides policies by which the city can influence and control land use decisions. These policies � call for development activities, studies, programs, offi- cial controls, and intergovernmental coordination necessary to implement the Plan. Com osite Ma � ' e ma ority of land in St. Paul will remain in. the same use with the implementation of this plan. The following � compa�site land use map shows the major areas for change addressed in the Land Use Plan. In addition to the mixed - use cluster areas, the map shows the commercial and � � � , industrial activity areas. In addition the map shows large vacant sites suitable for higher density housing. The Land Use Plan's implementation will concentrate on activities in these areas. r The remainder of the map 3ndicates the stable residential areas of the city. These will continue to show incre- ' mental changes as small sites are filled in or housing is main�ained or rehabilitated. These areas will continu a tower intensity mixture of commerciai , institutional � and recreational uses as well as the predominant under- lying residential use. The composite map shown here is generalized to show only , major development areas. Individual maps in the Land Use Plan should be consulted for more specific information on policies for the city. ' � ' � . � ' � ; ' vi ' ' , _ .� � � 2'�59'71 � . ' COMPOSITE LAND USE MAP ' " _ _ . _ ,y.,�,,,.. � �- �. ,� � o � �x -- --- { r� �ii�i�� wna;.. 1 � °Kn1 �.� ,� F . , �,, .k.w }:"�+�'iv r w'Yaw 1 ! �� r � a . rt ,�" • O :S . > � � ,--- . Ay .. ��y� '�r '1 � �� O � � ��...� ..$.i�� ;{+'i ' � r�aw, �) 1 � _ 'd� ) �»; p �w[sr t, , . � µ � e g O . • � tl R ... , ' � 'i � �� B . .e ew sr � • � (.v � v 1 ( > O� s � ' . _ �n -- - --- - - - � - .�a � M'' �w � � � - k 1; � _ *� MMdWi �IE 9A0 .YC ' . 'O O O YLBr wE. _— `�.. � 5�w� rE � � � �}�p 4qa{ •'4� . ' � ar � � i9 .�, � r'P. �1`•� E� ti � ` _ �' n. F� ffM90H �R j �� . � . QfA1E . ' � '� • �I : ' N I .. ". 1 e J �/ � �s� $ . ..S� 'r.',L'. � : ' _ �a J� r., w Y y 'I •.. �!'s y } . 1 t � O � � d's p � '� � . ; > � �.. �. '��-' � '� J �... �� ,�"� 4 i� � n �� 6i� t 'o ' ` '' .. � p � � � . T ' � � '�i N m i,� \� �.4 w.. +�� ;� � �� :• . ��,: �'` '�'i ,..��tr. ,r - f�. . .,� r ; �.r��ra ' • �' -rr - � �::.."� i �A �J ,.''+�'• . ,.i .f^i�� , �' to �' e,.,� �� S i C, �yv 1�� •'� .:. � ,.t .' 4t•�' ' �'i•C,`Y \\` . � v '" µ ':i��i �./ h!`a=�i: �. v�i,^M �:�Y:• r � r,i� � �� Ch"',��'4�L:��y,� ;-. . N'i �'`'�F i•�.M �b i-}e � r9f'�rr�„ ��,,/ .�'��Ztie�v''._tiytY a1 . `' . .�qz,,�'�y2:�;:� .��'','S' i ' '7'c'_ _;, :_��±:7�'`�,'��7 � '3"' ' �z; •�: * �� .�;..;- ��-�- ; __. � � The downtown regional m�xed use cluster , Mixed use cluster areas 00000o Mixed use strips ' �00000� �Q� New employment/housing clusters � � Large vacant sites for new housing � Labor intensive industrial areas , ��)�� Labor extensive industrial areas �.�L��;; Major public and semi public openspace ' * Airports � vii � � � 2 r 5��71 � • c�ty of saint paul � planning commission resolution file number $0-24 � date __2�80 � � WHEREAS, the St. Paul Land Use Plan was developed as a portion of the , Comprehensive Plan of the City of St. Paul ; and WHEREAS, a public hearing was held on August 22, 1980 at which the ' Planning Commission considered the recommendation to amend the Comprehensive Plan by adding to it the St. Paul Land Use Plan; and � WHEREAS, prior to said hearing, a notice of time and place and purpose of the hearing was published in the official newspaper of the municipality at least ten days prior to August 22, 1980; and , WHEREAS, at said public hearing, the public, the Planning Division staff, and Planning Commission members were given the opportunity to completely discuss and review the Land Use Plan; and � WNEREAS, prior to the adoption of the entire Comprehensive Plan, which is required by the Metropolitan Land Planning Act of 1976, segments of � the Plan will be adopted as they are developed, and subsequently combined into a single amended and internally consistent Comprehensive Plan; and NOW, THEREFORE, BE IT RESOLVED, that the Planning Corr�nission for the ' City of St. Paul hereby adopts as a segment of the Comprehensive Plan, the St. Paul Land Use Plan, a copy of which is attached hereto and incorporated herein by reference; and � BE IT FURTHER RESOLVED, that copies of this Plan be transmitted to the htayor and the City Council of the City of St. Paul ; and ' BE IT FURTHER RESOLVED, that the Planning Comnission recomnends to the City Council adoption of the St. Paul Land Use Plan as a segment of the ' Cor�prehensive Plan for the City of St. Paul, subject to Metropolitan Council review. 1 ' � moved by Hanggi �� by Summers " 1 in favor �5 � . against- o._ � ' IADDENDA TO ST. PAUL LAND USE PLAN ' September 12, 1980 General Corrunents ' 1 . Land use maps to show the Harriet Island cluster extending to the base of Prospect Bluff. , 2. Maps to show the downtown mixed use cluster extended to include the area east of the Capitol , south of University Avenue, west of the Burlington Northern ' rights-of-way, and north of East Seventh Street. Specifi:c Comments: , Page 14 Add a new policy: Policy 1 .3-4: The City will continue to support neighborhood programs and improvements which identify and distinguish neighborhoods and their boundaries. , ial nd nei hborhood cluster desi nations Page 48: Map should �ndicate that commerc a g g on Smith Avenue be placed at King and Annapolis Streets only. ' Page 50: Policy 4.2-3 should read: The city will discourage expansion of corrmercially zoned land in its isolated neighborhood commercial centers. , Page 66: Policy 4.5.1 should read: Through zoning and building permit processes, the city will discourage the expansion of institutional uses avhere it , would not support established city policies . Page 78 Letter G should read: Public improvements to enhance neighborhood connections to the downtown. ' � ' , � � ' , , � , NOTE: The Metropolitan Land Planning Act requires in the Land Use Plan, "an element , for protection and development of access to direct sunlight�or sol�ar`energy systems". During the many revisions to the December 1979 draft, a discussion of solar access was inadvertently dropped from the plan. The following discussion should be inserted as ' Section 2.3 in Chapter 2.0, "Environmental Management". . ossi ue s wi ecome �ncreasing y scarce an expen- ' sive during the 1980s. Minnesota, with such severe winters, will be greatly impacted by this. Now is the time to start planning for alternatives to the petroleum � products we presently depend on. This section is devoted to some preliminary guidelines regarding the use of solar energy for space heating: to heat homes, businesses, and � industries. It is possible that solar energy could provide for a significant portion of the space heating needs of � St. Paul . More research is needed regarding: 1 .Current energy use in St. Paul ; projected increases or decreases in the future; ' 2.Exactly how much of this could be provided by the sun: is installation of solar collectors a cost effective alternative?; and 3.How can existing homes be retrofitted to use solar ' energy, and at what cost? ' 2.3.1 PROTECTING SOLAR ACCESS Assuming that these questions are answered and solar ' energy is determined to be feasible to use for a portion of St. Paul 's space heating needs, some land use controls will be needed. � The efficiency of a solar heating system is calculated on making maximum use of the sun's rays at all times. The angle at which the sun hits the collectors is also ' critical . Prior to investing in a solar energy system, a ' building owner will want assurances that no other struc- tures will be built or trees planted which will interfere � with access to the sun. At the same time it is necessary to assure that solar development on one parcel will not unduly limit the development rights of adjoining parcels. ' Protection of solar access can be accomplished through the zoning ordinance and building codes. The city should assume that solar power will be used to some degree in ' St. Paul and should initiate studies to determine how solar access will be protected. ' � ' � It is likely that some locations in the city will be much ' better suited to the use of solar energy than others. The city should research this question and then promote the use of solar energy where it will work best. Further, the city should encourage the installation of solar , energy systems when new buildings are being constructed. And finally, as St. Paul proceeds with its tree planting program, solar access should be taken into account. Land- , scaping plans reviewed by the city should be checked to make sure vegetation will not block access to the sun. � POLICY 2.3-1 : THE CITY WILL PROMOTE THE USE OF RENEWABLE ENERGY RESOURCES BY ENCOURAGING DEVELOPMENT OF ALTERNATIVE ENERGY SYSTEP�S AND FACILITATING THEIR USE. � POLICY 2.3-2: THE CITY WILL AP�END THE NECESSARY BUILDING AND ZONING , CODES TO DEFINE INDIVIDUAL PROPERTY RIGHTS TO ACCESS TO DIRECT SUNLIGHT. ' ' � ' � � , � , i 1 �. � L�NU USE PLAN i � PUBLIC HEARING URAF7 � AUGUST 22, 1�8U � UkAF �(' i � � � 1 i 1 1 � t � � � COMPREHENSIVE PLAN SECTION PLANNING DIVISIUN DEPARTMENT OF PLANNING AND ECONOMIC DEVELOPMENT � 25 WEST FOURTH STREET C1TY HALL ANNEX S7'. PqUL, MTNNESOTA 55�IU2 ' . � iTABLE OF CONTENTS � ' , rNTRODUCTION . PURPOSE � 0. G I I � .0 I Y CHA CT R � I R D I - . R I SI ES D B ILDI G 1. ITAGE PRESERVATION SI ES AN D S IC S 2 � 1 .3 VIT L NEIGHBORHOODS 14 T 1. CO NECTIONS T D WNT WN '~T� � � 2 0 ENVIRONMEN L � f�i'�:AGEMENT I . E S NSI IVE RES U CE 9 ' 2.1 .1 SENSITIVE RESOURCES 19 A.SOILS AND STEEP SLOPES 19 B.VEGETATION, HABITATS AND WATER SYSTEMS 19 C.AIR POLLUTION AND NOISE 23 � 2.1 .2 MANAGING S�NSITIVE RESOURCES 23 A.POOR SOIL CONDITIONS 24 B.LOCAL DRAINAGE PATTERNS 24 I C.FEDERAL, STATE AND REGIONAL PARTICIPATION 25 2. AN GE ENT AND CONTROL 0 MAJOR DE N , 3 0 MEETING LAND U E DEMANDS INTR DUCTION D E ND I HE 1980S I . USE C STERS 28 3.3 I LE E TI G CL STER DEVELOPME 32 � 4.0 DIRECTIONS FOR LAND USE 35 I R C I N 4. RESIDEN IAL LAND USES 36 � 4.1 .1 RESIDENTIAL LAND DEMAND 36 A.HOUSING PREFERENCE 36 B.HOUSING RELATED COSTS 31 � 4.1.2 RESIDENTIAL SUPPLY 37 A.CONSTRAINTS 3� B.OPPORTUNITIES 38 ' C.DESIGN AND ENERGY CONSIDERATIONS 43 � , i � � . CO ERCIAL LAND USES 45 ,I 4.2.1 COMMERCIAL LAND DEMAND 45 4.2.2 COMMERCIAL LAND SUPPLY 4/ 4.3 INDUST IAL L ND USES 54 � 4.3.1 DEMAND FOR INDUSTRIAL LAND 5q 4.3.2 THE SUPPLY OF INDUSTRIAL LAND y5 . RECREA ION ND OPEN SPACE LAND 61 � 4.4.1 RECREATION AND OPEN SPACE DEMAND 61 4.4.2 MEETING RECREATION NEEDS �;� A.MAINTAINING AND UPGRADING EXISTING FACILITIES G2 B.TRAILS b� � 4.5 INSTITUTIONAL LANDS � 65 4.5. 1 THE DEMAND FOR INSTITUTIONAL SPACE HAS SHIFTED ti5 4.5.2 MANAGING THE GROWTH OR E,� � SHIF7 IN INSTITUTIONAL LANDS A.EXPANSION UF INSTITUTIONAL LAND USES Gu B.MANAGING REUSE ;;t � C.INSTITUTIONS IN CLUSTERS �;� D.MAINTAINING INSTITUTIONAL OPEN SPACE by 4.5.3 THE STATE CAPITUL AREA j� , �R�SP R ION L ND USES ��"�7� 4.6.1 RAILROAU LANDS ��! A.UEMAND FOR fZAILROAU LANUS: ; 1 �perationa1 Capability vs. Alternative Use � B.IMPACTS OF RATLROADS ON ADJACENT USES 7�' 4.6.2 AIRNUf2TS i j A.AIRPOR7 DEMAND , � � B.IMPACTS OF AIRPORT UPERATION ;4 �.0� i�PL�ENTAT N _____ .�_..__1_------ __.___�_.._._... .�,. � 5.�DEVELOPMENT ACTIVITIES �� 5.2 STUDIES ' �`-��" ;y . PR GR,4N1S -" _..�_ - - --79 � 5.4 OFFICIAL CONTROLS ` l��"�p 5,.ri INTERGOVERNMENTAL RELATIONS � y-��--'-��;;�� .G DEPARTMENTAL RESPONSIBILITIES �� V��"- `��-��;_� � _ ___. . . ....._._._.__.�_ ..._._,_____.--- __.________._ �._____.____._..� _.___._.Y�__.. "I'EDITS • � � I _ 1 ;; � � � LIST OF MAPS AND ILLUSTRATIONS � � ��5�� FIGURE PAGE TITLE 1.1-1 8 Views and Vistas ' 1,1-2 9 Downtown Views and Lan�narks ,.1-3 10 Potential City Landmarks 1.2-1 13 Historic Sites and Districts � � 2.1-1 20 Poor Soils and Steep Slopes 2.1-2 21 � Potential Remnant Na�ive Plant Comnunities 2. 1-3 22 Water Systems , 3.2-1 30 Levels and Intensities of Clusters 3.2-2 31 Mixed Use Cluster Opportunity Areas 4 1-1 39 Residential Opportunity Areas � 4.2-1 48 Commercial Opportunity Areas 4.3-1 57 Industrial Policy Map � 4.4-1 64 Linear Park System 4.6-1 75 Airport Impacts � � � � i � � I , 1 I � ;;; � 0.0 INTRODUCTION � j , 0. P SE ��St. au �� as een c aracterize as a u y eve ope or built up city. But, no healthy city is ever fully developed and static; it is constantly evolving and 1 adapting to new needs. Pressures for change in land use patterns during the 1980s will be generated by changes in population characteristics and energy supplies. � The nation as a whole will experience an unprecedented � demand for jobs and housing as the post-war "baby boom" ' generation comes of age. Despite population losses over the past 20 years, the city's current population is expected to stabilize during the 1980s. Although the � total population may not increase, the young adult age group is expected to increase, creating a demand for more housing and jobs. � In addition, increased energy costs, especially for transportation, may well make St. Paul an attractive � choice for young adults from throughout the metro area who will be seeking a place to live and work. The city is centrally located within the region, and has the capability to accomnodate the new demands for energy I conservation. St. Paul 's basic patterns of living, work- ing and recreating were established in an age when energy supplies were limited, especially for transportation. 1 Without major alteration of the city's existing fabric and life-style, St. Paul can become increasingly energy efficient. The transit system can be expanded. Existing I housing can be insulated and alternative energy sources for home heating can be explored. New development activjty can be clustered to reduce transportation energy consumption and costs and to provide opportunities for . � efficient central heating. The central issue addressed by this Land Use Plan is the � pressure generated by additional demands on a finite supply of land. Since there is very little developable vacant land left in St. Paul , the city must make innovat- ive use of its scarce land supply. Demands for residen- � tia'i , comrnercial and industrial opportunities can only be met through careful and efficient use and reuse of land and buildings. Emphasis must be placed on maintenance , and rehabilitation as well as careful development and infill of selected sites for more intensive use. � , 1 � � � St. Paul 's response to the new demands of the 1980s must � be carefully p1anned and implemented to preserve and protect the features, of the city which are its assets. Foremost among these is its overall character, which has � been shaped by topographic elements like the bluffs and the Mississippi River, by historic and cultural forces embodied in the city's landmarks and historic sites, aricl � by cohesive and identifiable neighborhoods. The city � also incorporates some very unique and sensitive environ- mental resources which must be carefully managed t� ' remain viable within ar� urban setting. The Land Use P�lan wil1 t�e St. Naul 's guide in evafuatiny . proposed changes in the locations and intensities uf i various types of �and use activities. By anticipai:ing /• • and planning fior change, the city can encourage and support actioris that wi� l cantinue to make St. Paul ar� � attractive place to 1ive and work. To do this th� ciiy will maintain its commitment to neighborhood stability� economic d�velopment, ar�d energy efficiency. The Land � Use Plan w�i�ll also act as the basis from whicii ttie city� can r•edirect �,ruposal� for change that might otherwise neyatively afi�ect t��e quality ofi life in the city. Th� po�licies set rortn in this plan, therefore, are guide- � lines for the changes anticipated in the 1980s. 0.2 QACKGROUND Land uses in St. Paul in the 1980s will be affected��V�.. � primarily by four factors: the existing development pattern, population and housing characteristic55 the city'$,econorny, and energy supply ar�d consuniption� � �xi sti ng Ueve 1 oprr�ent Patter•r� The first s�ctior� of St. Faul was surveyed anu plattec� i�i � 1847, and the yridiron �attern used there spread to r�w5c of the rest ofi the ci ty. l he bas i c ci ty b 1 oc:k i s Ei�;1 feet by 3UU feet, wi th 1 ots havi ny �lU fiooi: firon�ay;:� v Nei ghborihoods whi ch k,egari to for•m as earl.y as t��c� 1 t;5i�s � still exist tociay: St. �aul is a mat'u►•e city wiLh a weli-tsta�u�iis►�eci patt�r �; � uf 1and use. ii�e existiriy lancl use distributiun is si�uw�� beluw. 1 I z 1 f ' � , LAND USE IN ST. PAUL (1974) USE OR TYPE ACREAGE PERCENTAGE OF TOTAL ' Resi ential 10,908 30.4 Comnercial 894 2.5 Industrial 4,680 13.1 Public & Semi-Public 5,083 14.2 � Streets & A11eys 8,010 22-4 - Vacant 4,308 12.0 Surface Water 1 ,953 5.4 1 (Rivers & Lakes) 35,836 100.0 � Of the land classified as "vacant", very little is actua1ly available for development. Much of the "vacant" land js not suitable for development due to excessive slopes or poor soil conditions. Some has been reserved � as public open space or is in the Mississippi River flood- plain. Other portions are not actually vacant, but are underutilized, such as temporary parking lots or railroad � yards, and may not be made available for development. Po ulation and Housin9 St. au as experienced a decline in population from I 309,000 in 1970 to about 270,000 in 1980; its share of the regional population dropped from 17.0% to 13.6�. St. Paul has remained the region's second-largest city. / It still offers employment to 18% of the regional popula- ■ tion, and its population is expected to stabilize during the 1980s. At the same time, the number of households, � due to some important demographic trends, will actually increase. These important trends have begun to appear in recent � years. The generation born in the post-World War II "baby room" �s reaching the age of household formation, the early to middle twenties. Because this group is generally � marrying later and having children later, there has been an increase in one and two-person households. Even when couples do have children, they are having fewer children � than in the past. Because of increases in life expec- tancy, there are relatively more elderly people. St. Paul also has relatively more elderly than the Twin Cities area as a whole, 13.6% of the city's population, versus , 8.7� of the regional population. The growth of these baby boom and seniors groups has caused a decline in average household size in St. Paul , from 3.18 persons in � 1960 to about 2.5 persons in 1980. � 3 , � ' St. Paul 's existing howsing stock was built to meet a , population of large families, not small finuseholds 'of single people or childless couples. These expandiny population groups are looking for smaller housing units � and more rental opportunities. The effect of more people seeking housing in St. Paul has been a shortage of hous�- ing opportunities. Current vacancy rates are 0.5% fur• single family units and 4.2% for multi-family units; the 1 ideal rates in a healthy housing market are 1 .0% for single family units and 6.0% for multi-family units. � The Econom St. aul s economy is currcntly undergoing a ma�or• si�ift. Manufacturing emplayment is declining, while employment � � in services and government has risen substantially. This . shift may be seeri c�lear�ly by comparing employment sta- tistics for 19/U arid 1�7�. � EMPLOYMENi (AS PERCENTAGE UF 1�OTAL) ECUNUMIC SEC�fUR 197� 197g � Manufacturir�y 25.6 21 .1 Non-Manufactur�iny 74.4 78•9 Constructiorr 5.0 �.1 ' 7ransportatioi�/ �.s 6. 3 Communi cati orr/ lJti 1 i ties � Wholesale & Retail lrade 21 .2 1�•ti Finance/Iiisurance/ b•4 �• � Real Estate Senvices & Miscellar�euus 19.4 1=�� Governmen t ��•� _. ��.`'_ "�00.0 100.0i �l�U'fAL NUMBEk Uh JU�ti 176,90U I t�3,U0U � The economic yrowth sectors--i'inance, insurance, r�a: estate; serv�ices; and government--use of�fice o�• cor�iet~ � cia�l space as opposed tt� other ty�,es of industriai sNuce: 1'hese acti vi ti es do ►�c,t necessari ly requi re centr•a1 �u5iness distr•ict �lucatior�s, either•, f�ut m�y l�cat� i�� other parts ut the city. � Uespite the importance ofi the growth sectors, manufiactur- iny, construction, comnunication and utilities and �vhole- � sale trade still empl�y over 70,000 people in St. Nau� . Over 75% of the �I ,UUO or more firms in this group ar•e smaa 1 y occupyi ny 1 ess than one �cre of 1 and. l� pro�,e��- � sity for small fir•nis is expected tu �oritiriue becau5e ti�� city lacics large parcels of good, vacant industr�a! Ia��u:: � 4 ' 1 � 1 I Ener Use e tate of Minnesota must import virtually all of the energy resources it uses . Thus , in addition to the � already high costs of fuels, the state pays even more for the use of energy than other areas of the country, because of added transportation costs. The severe climate requires additional energy consumption to � heat buildings adequately during the winter. Energy . costs are increasing faster than incomes; between 1977 and 1979 alone, composite energy costs for the average 1 residential consumer in the Twin Cities rose a dramatic 56�. Price increases of this magnitude most seriously affect people with low and fixed incomes, a large propor- � tion of the population of St. Paul (about 24%). The energy prospects for St. Paul are mixed. It faces 1 all the cost and supply difficulties faced by the state. However, 86� of all St. Paul horr�s are heated by energy sources other than fuel oil or kerosene, the fuels � expected to increase most in cost and decrease most in availability, compared to 84% in the Twin Cities area as a whole. 1 The city's development pattern has some inherent energy conservation qualities. The city was largely built in an era when the primary means of transport were people's � feet and horses, rsulting in a fairly compact pattern of development suitable for the provision of energy-efficient mass transit. St. Paul already has a fairly well- established network of bus routes and a good ridership 1 record; western St. Paul , for example, has only about 8� of the population served by the regional transit system but_ accounts for 16� of the system's total ridership. , St. Paul is the highest priority of the Metropolitan Council for transit improvements, which may reduce the city's energy consumption even further. � � � � � � 5 i � 0 R ANIZATIO uiding land use c anges in t e s towar a carefu � uF THE PI_AN integration with the existing city fabric is the central objective of this plan. The first two chapters identify ' the framework of the city today which should be preserved and enhanced through continued development and redevelop- ment. Chapter � , City Character, identifies those features of St. f'au7 that make it a unique city: historic � and geographically prominent sites or buildings, and distinct neighborhoods. The need to maintain high yua1ity design in future development as well as to phase � out existing larid use conflicts is also addressed. Chapter 2, Environmental Management, describes the city'�� natural resources and identifies policies for manayir�y their continued viability. � Within the basic parameters of city character and envir•u��- mental resources, land use changes anticipated in tl�e � 198Us are then addressed. Cf�apter 3, Land Use Cluster•s, examines the growiny demand for limited land in St. Naul and proposes a concept of clustering activities in � planned areas of the city to help meet this demand ir� a sensitive mannero The fourth chapter, Directions for La��d Use, identifies the demand and supply issues withir� eacii major land use category: residential , commercial , i►idus-- � trial , recreation and open space, institutional and transportation. Palicies �re set forth to guide the development and redevelopment of each c;ategory. llit � fifth chapter, Tmplementation, iderrtifies the majur� actions needed to implement the Larid Use Nlan's pulicie�: It identifies the deve'lopment activities, studies, �ru � grams; offi ci a l control s ar�d i ntergovernmenta1 cuur�di►►u- t�i un recommended i�i �»hc- L and Use Pl ar�, � � � � � � u � � 1 .0 C�TY CHARACTER � � INTROD CTION erta n natura and man-ma e eatures o St. au ma e it a special city. These features include architectural and historic landmarks, bluffs, and slopes, the Mississippi � River, and distinct neighborhoods. These amenities are important in attracting and keeping residents and businesses. These amenities should be preserved and � enhanced through conservation, careful redevelopment, and attractive new development designed to add to the exist- - ing character. St. Paul has some conflicts among exist- ing land uses which should be resolved over time. , These goals--preservation of prominent features, conserva- tion of the city's heritage, strengthening of city neigh- , borhoods, promotion of attractive design, and elimination of land use conflicts--are addressed below. � 1 . PROMINEN BJECTIVE: SITES AND BUILDINGS TO PRESERVE AND ENHANCE THE VISUAL CHARACTER OF ST. PAUL'S TOPOGRAPHICAL AND LANDMARK FEATURES. � The natural terrain of St. Paul is a major determinant of the city's unique character. Bluffs and slopes provide , opportunities to view and appreciate the urban landscape. The Mississippi River, framed by its system of bluffs, constitutes the most dramatic and dominant natural � feature of St. Paul . To some extent, building and park designs have been oriented to the river valley, but much more can and should be done in future development. Bluff top bou1evards were once proposed to span the entire , length of the Mississippi River valley in St. Paul ; only a few portions of this route are actually parkways today. This b1uff line route still has the potential for public � enjoyment in the firm of bikeways and trails, however. The bluffs also offer numerous prominent sites for build- � ings and scenic overlooks. At ends or turning points, the bluffs provide significant vistas of the city. Struc- tures on these promontories strongly influence the over- all image of the city; for instance, the St. Paul Cathedral � is an outstanding example of urban design that enhances the city's natural settjng. Since the bluffs and develop- ment on them impact the city's visua1 quality so greatly, � it is important that there be some control to preserve the visibility of the bluffs from various points in the city and to design development to accentuate the topo- graphy instead of masking it (Figure 1.1-1 ). � � 7 � ' � FiGURE lel-1 VIEWS AND VISTAS � FW��,,,,� � „� — —————�� , <;, � � ��. � � �r � �.�en;iiw . n ��' ! [ uawr.u+ .wt ` � �ow+. , nai.�f`. � �� 1 �j -y � j: � R i i i, . . � ��____ . � "'n � � E t �.�.�rnwA rE `_� ' �� `4� ,f � �� , ;r. ; � �„x s, s .; �� b G..� � -- n�.e e��r.r '�r k � e � � .n,ri- y� � _ _ 4. �' a n. sr ..,, _ W �rm.r..� -. . �^ '��" — g... — � w U rnrst��aa �we i sr � � w+aww a pJE � . + ;f �.� �'.::''• r � ��T -7 z �'::'�+�. � % � 3 J �sshi�si:r S �� e :oa si f � . , f �� ' _ _..... ��-� - __ � -q1 - _ � MM.']Wl 4I ' :::�I� BURt< A,� i . �..' —� — � -- � .: _..___� ' . SEI B" R'.'t :. w �.{} ... . ` e#ro 1 ; '}� F tR(M1 ..'.i/��_.,•�..�'. •�'!�(.':^. �Y',+ �i S� � '9ti.. � �� y � ,.�\ r P'� n;• �� _r--- - _ � ; _ _ _ � i � R � . ."• 4� a t ` � {�� c s� ��. � �,i +Y�� ' ' b � p--- --�- -- _ _ � , :.i � �'�.\I ¢ . A� : � . Ali�ll':f11 R.(�. � Z �� I ,. �''�q�'�� /.•� i�l-.i(F �"F"+n B ' I�� t:a � � _— fr —�' a O _ /pi E !n is f `a�� St �'� . � _ • ` � � � ' - . � � a:� .: ,� � � �— �� /'! .�. � i 1�1 ��`., � W t)In� .�� : `� N bNw CA�6'�1 I E: PNN^IKK�i ��t . . � � '/yt�.�.��_._.... .�._._ \`� . . ,� \. _ _"�u _ :�T � I�I, `�\') . . `� �illiilu /�L ':•:�� I `�� .:�I � ` \ � .[/�tni1E /�� \ I . . i . + � '.:.I (� ..�, ��j ` . � .' i 1 '�� ,'� � E /• i \1�'• �. / 1 , : •.�. i ., .. .I... y� - .' . � �. 1 �� ` � { � / (�, �f . ..�':C:: , ` � f :.�::�� ' � , . • .... � . � '�� /� wi ` � I .... � rYl__.:�':"��i,. � . ... ... `�`� �LUf'F� L IfJE:, �'—� U IEL�`_ � � f�`�ff�, , � � � � � () � � � � FIGURE 1.1-2 DOWNTOWN VIEWS ANU LANDMARKS � �u � �� ' I Iuu� ,/ UU� �❑ ��:� r>�:x _ U o o L� o� .::. .. r., l___ ' �� \ �❑ �J :::�:::� r<}:• .;;. (� l ::ti: ' ❑ � / � �L� � rv:.`;;;t�'i;:'J: : ��❑ � ` . , ' .: r �. Q O �a ' . .� :: r s ' v ��r � a � , , r . ,'✓ t.?n • � '/,.. ''+} � i+i/'i�..'�y �Yr�f O ' :x'. :.:;;'r,�;. r' b(�' O :.•...:f:�:.;.,•.4�:vi:ti.. . •,��Y;{:'r:':. f:'. r',•'�;• •{}vF�Y;:'•'f i:+ O � �� :•1:•i:.�., r , ,:r•. .r r••,.:j.•.v,•:.r.��'"��{.ti O O �_ \ ��f��• '; 'r;:}; •�••,•:� •f';:;:f: ' •'y:�`�: O OO :.{+ •. •�F.;.•:•�• �. r:' .�.$,. . . {,.� + . '`C� � ,. • r .;4...�,:• �. i '�<?f�'• . � •�• 1',4• ,��A `••� ` .. i:ff.��•'��•f� •I:� �- :J:•:• � � , -] •f�'i•�f.. � \O O / - "r'' 0� � 00 � . O�- O 1 :� O � �. �� o � � � o O o G � O o --__ O 0 , _-_ _ t :� � 0 .� O • O O 'ti•Y .� �� `�� O :::•;;;.::.:�.`;� .,;•: ��, , v .�:::.::.:::::. � •+>�' \�;'•:i{':;J:' � � •• O O }1•: 1' •:�'y\'ti _�'-� O A•••• � 4••• O ' f4~�• / � �� :. �� . • 'r::: O � < '• �� 10 %' • ,� :::.;:::::�'� _--_ , .: .:. :A�� ::r..�_=_�`� <:�:�� -� .:: ::r: - /�� -� ;;:�;;::;::. ::•::;:;:�.r.'•.;;. — .,t::::::s: �`" •:,:: .;::: �;;,;,,,;;: ,,,� ///) ; �,\.� :}!�}: / / I / . _�� .::. ��r ' f! � 1 ��:� � � .�.�..::: � ; \ _� o .<::�: .�� ::::�;:� �' \ :..:: �; � �O��G �i:r..::::�� , � � �� \ .:::.:..:.. . .. :.. . . . .... � a .::. � o }�� - � � - � � �\, — �. . � - . , � , = �. .. -- : : v� , �I� L—�� ,�, �� _-� � ) �� / ' _-� '�--�� _s�--- -��_,-,� � ��, — r - i �� -- � �( � A��„�' � �� , \ , � ,i / /ir �/�� \ � . �� \� \ _,c �l�_�� ;-,; �, � , � I , , .� l; ��;; ,!%�� ;- ,/ ��_--�=�'/� �, �'� I ,�-� , � , ,, ; , ___ _� � , '', J j i�;� C ,y / � �-_�--� `_ \� � \� � ,\ � � - �� / � �� _- � i ,� ,� ��. �� ' \V� I�� _� �� ,�-,� —' �� 1�i �\� �� -�► VIEW CORRIDOR • LANDMARKS , 1 .The Capitol 6.St. Paul Public/ ;::: AREA WHERE 2.First Baptist Church James J. Hill Library BUILDING HEIGHT 3.Central Presbyterian 7.landmark Center ' SHOULD BE & St. Louis Churches 8.Assumption Church LIMITED 4.Union Depot 9.Irvine Park S.City Hall lO.James J. Hill House � 11.St. Paul Cathedral 9 , � � 1=iGURE 1. 1-3 POTENTIAL CITY LANDMARKS � N��N«�� _____ „ •- -��--a �, >�E 3 �"`�+ �� ; � �� 1 2 wc:rai .vt. °""'� % d N� v C MLNG�(1N a N�F .�i G } "' l� � - A�U'Nm � 1MKIl�Y p � f �Z 3 j T �Qe L n .vl 4 ��l ' � p �--''- cci.+�> . � ,i,vt, avF w E C uurv�uti ac ,��"� .� q � ,� ' , � 14�� s � -,,k , � rHU+r s. � i�u s � �kF1.r � eWllH . � �, rls[ � �� .i..i 1 � ,fro'� _ � 15 '�e u � � � �S ro,sr � �� ' � � ��b � ' s,uti�,� � � � � � �' � � � wr s� �n� � � � �c„w.0 tll .� i . � '—'-� � � �13 " g F�,.� � � � � s�� s� : � � ��,. � � � � ,,,, - � � t , _ � - ' - - , : W 1 r r � _ __ � ( a �� 2 � �`� z .. �9n . �. '� MNIY1Kl NE � � `_ --- �1 9(LYS 4T �-�\.� `iE:Hr F�E �� 0.V0 _ __.._ � � - ` � � 1i � �'�tk E �� ,p�� i:�R � / aF N 1. i � � x , -- - . •8 � y p _ � � b , � q �} � � � j� ` � �'� ��"__ !.'F � �-C"�.Yf` � "_� • �� 8 { r 1 i - 1 JEf�Li1S�N WE • __i S _cp, ' m '., l L�� 4'Q/ / cr��rse a,<�.. � � }.. �ow , . � ,x. rvt �' �� C%��. � � si � �� h + �, s '_ �. '�p � R �( 3 i � � � � .`��*' ,Y ry f_L�£ '� K i �i � r ,�,.� '`h ^; � � �.�rrtin�ro i nnu aa' - +.:nwanN ;s9 i s �i. \ � 1 � , r _ '� ' W � i �e �r�-�-' --�-'-� � _-. ,� \ � � .,,� � �w- :��11 ` ,.,�r � �� ,�; ,, , 1 � :� � MI�iNEPI AVE / �� 1.;,'j � 1r'�\_ f 1 � EC'I.IM+� ,i� .� i � . j �,.� /�i � . � , l .�� /� �•`y.' ,,�` • . 1� � 1 - / �j�� , �;` ' ' � � � � v . �f y , ,�:.: . , � �- �flf 1 ��/� ��\ � . ` � � _�_ � '� - '�- . _ _ , Ni . : , _ �_.� �:�: ! � 3h1 (Map�l ewood) 1 U. Schmi dt Brewery � �. Highrise � le Water Tower 3. 0�lympi a t3rewery 1'Z� Wi 1 der Park 4. �(�orre de San Miguel !3. St. Agnes 5. Dawntow►� St. Naul 14. Highrise � 6. State Capitol 15. Hamline United Methodist Churcii 7_ 5t. Paul Cathedral �l6� Montgomery Wards L•. irvine Park !I Luther� Theo1ogica1 Seminary° � ') H�yh liri dqe , � 1 C� � ' , 1 Very often, structures on bluff-top sites become city landmarks due to their physical prominence and visibility. Other structures become landmarks due to height, historic , or current importance, or isolated location. Some of these landmarks help define the city as a whole, such as the Capitol and the St. Paul Cathedral ; others define the areas or neighborhoods in which they occur, like the � water tower in Highland. Because of the nature of the downtown and the substantial amount of large-scale con- struction which has occurred there in recent years, I approaches to downtown landmarks which should be preserved--e.g. , to the front of Assumption Church from Hamn Square, or to Landmark Center from Sixth Street--are � we11 documented (Figure 1 .1-2). Further investigation of landmarks beyond the downtown and Capitol areas is needed to identify the important landmarks and the steps � necessary to protect their visibility. The map in Figure 1.1-3 9s, therefore, suggestive only. POLICY 1 . 1-1 : � THE CITY WILL ACQUIRE OR ENCOURAGE THE RAMSEY COUNTY BOARD TO ACQUIRE LAND OR SCENIC EASEMENTS ALONG BLUFFS TO PRESERVE THEIR PROMINENCE AND ESSENTIAL CHARACTER. , POLICY 1.1-2: THE CITY WILL IDENTIFY STRUCTURES WHICH ARE CONSIDERED CITY LANDMARKS AND WHICH WARRANT SOME PROTECTION FROM , INCOMPATIBLE OR OBSTRUCTING DEVELOPMENT. POLICY 1 .1-3: � THE CTTY WILL DEVELOP AND ENFORCE REGULATIONS TO PREVENT SIGNS, NEW CONSTRUCTION, OR OTHER OBSTRUCTIONS FROM BLOCK- ING VIEWS, VISTAS, AND APPROACHES TO LANDMARKS AND MAJOR � TOPOGRAPHICAL FEATURES, AS I�ENTIFIED IN THIS PLAN OR THROUGH SUBSEQUENT STUDY. � POLICY 1 .1-4: IN REVIEWING BOTH PRIVATE AND PUBLIC DEVELOPMENT PROPOSALS THA7 MAY IMpACT IDENTIFIED LANDMARKS, THE CITY WILL REQUIRE SITE DESIGNS THAT ENHANCE THESE FEATURES. � 1 t � „ 1 , � 1� 2 HERITAGE PRESERVATION OBJECTIVE: � � `>iTES AND DISTRICTS TO IDENTIFY ANU PROTECT SITES, DISTRICTS, AND STRUCTURES WHICH ARE SIGNIFICANT IN THE ARCHITECTURAL, HISTORIC, CULTURAL AND SOCIAL HERITAGE OF ST. PAUL. , The significant concentration of liistoric architecture in � St. Paul contributes strongly to the city's unique charac- � ter. Recogniziny that historic buildings are an asset, the Ci ty created the Heri tage Preser�vati ori Cnnuni ss ion (NPC) in 1976. The Corr�nission studies and recommends � structures and di stri cts for hi stor�i c preservati or� �y tiie Council . 'fhe Commission also reviews and appr�oves all bui�lding permits afifecting designated structui°es a�• � districts. I'resently, 31 structures and one distri�� have been designa�ted fior historic {�reservatiun by the City (;ouncil (Fiyure l>2-1 ). l�he HPC ,'s also workiiiy with the Ramsey Cour�ty Historical Society to identify � other sites which should be considered for historic desiy- riatior�. POLICY 1.Z-- I : � THE CITY WILL CUN�("INUE 1-U SUPPORT KEUSE, IZEHABILII�ATION, ANU FtESTORATIUN, INS7EAD UF DEf40LITI0N, IN UESIGNATEU , HERITAGE PRESERVP,TION SITES ANU �ISTFtICTS ANU l�H�. ACT1-� VITIES OF 7HE ST. PAUL HERITAGE PRESERVATION COMMISSION TO PROMOTE f�UBLIC INTEREST IN HERITAGE PRESERVATIOi�. POLICY 1.�--2: � 7HE HERITAGE {�RESERVATION COMMISSION SHUULU CUNTINUE �l� AuMINISTER THE c;?TY� S HERI7AGE �RESERVATIUN PItUGRAht� Nr�►� � TU REL�OI�IMEND SITES Af'PRUPRIATE FOR UESIGNATIUfJ BY 11�t i;ITY CUUNCI�. PULICY l.�-:�: ` TNE HI'C SHUULU UEVELOP ANU AUOPT Gll1_UELI(VES 1U ENSUIi� COMpATI�LE UESIUN ?N NE4J CUNSTkUC1�IUN At�U kL-NAt3ILITATIUi� t'JNICH Is WITH.(tJ /;IJU/Uk HUJACEPJf 1t► ii1 �'IORI� •;�.1-l�:`' l;i��' :� ll!�;'r{2 T��i�<. � � ' � I� � , , , FIGURE 1 .2-1 HISTORIC SITES AND DISTRICTS ' LARPENTEUi hE. 1y \_ ' IOIT NE. O�� a . 1 . I , � '_�� Q„* I N� MtNGTON NE. ��' E � 6� *1 g � � � � � U � � � I� 1 y�� J+ �E� ! E NY 1YE C 2,� �-_- � w rwwKrrn � � �� wm�rro �E �M� � � ,� � � " W � � � �� FRONT ST N Ti GSE 51 aEn�E 9�r aS use sr eu 4A tF � � � �� f' � � ��.{ � � E.�a�6i � , E�� w � waWN �rE. L� ��r.dE �, � 8 Itl � t �� y�,. � r�sww � .�. 1y °' E em st � ' � i � UnER9Tr � � � * � E Ya 5� � � � � � � � � _ � �_� ,_w ,_� 1:`i � � ,.�� , � � '� � y;1 sE�ev �. " aro Z � � (� - 11 j � i�' ' • •, /"f fLLAVU, ._ 'FR � Z �.... � 4� ��t::;;:. �, F ST� �r � � :*:.:.. . �.� � °y � * ••::::�; t y� 28 a..� � �� ,a � � � 4 � � * ;' �, � s q � *' s cun w� rs % �`' � �, \ 8 6 � g ♦ � �- -- � a * •d' � i` .EV�RSan w� � � � ('fONC# SI � � I (OiMEP� I I � �UIfJQA� NE � � � � � � :/ � � � � � y � � / � � ' ' / �a /: Q /� �+ ' !� � ; � � a � � /Fp � � 6 �� /I i�`��__ a� � �i �� uo acwr � ; oim ' � '� w aa�f I C '�'F uaWbtS / > ll / � 1 � ___ ___ , , St � `°'° � vK"" � � � ; � ;�-. ._ _ l \ / i •,� E � H r`( V� WNIREK 1YE. � ' �� . �� F yt l � A _\ si ` EWQRBE RD N(�'� ,�,a // �\',\ �\. � iE � ' � t� (1� � �¢' '� 11� 1 .\ ` \ ��J t -� 1 �I (D / �,��Q � 1 _ �' � i� �♦ �i 1. Como Park Conservatory ��.�� ; �, ��. � �'� 2. Andrew R. McGill House �. �. � � � �± '�;� 3. Frederick 5pangenberg House �`�'�0;� �� ! ,.___ �/ 4. Old Main, Macalester College ��.�,, � 5. University Hall, Hamline Univ. \�. � ��'' � 6. Muskego Church ��--�---- ' � � 7. Justus Ramsey House � 8. Lauer Flats N' ��,,,�„ 9. C.S.P.S. Hall ,�E 10. St. Paul Building 11. McColl Building , 12. Pioneer and Endicott/Midwest Buildings 13. Landmark Center 14. St. Paul Public and James J. Nill Library 15. Minnesota Muse�n of Art 16. First Baptist Church � 17. Brunson House 18. Luckert House 19. St. Paul City Hall/Ramsey Co. Court House 20. James J. Hill House 21. Blair Flats/Angus Hotel I 22. Adolph Muench House 23. Ward Beebe House 24. Governor's Residence 25. Burbank-Livi�gston-Griggs House 26. Sumnit Terrace � 27. Frank B. Kellogg House 28. Alexander Ramsey House 29. St. Joseph's Academy 30. Rochat-Louise-Sauerwein Block 31. Assumption Church and School � Historic Hill Heritage Preservation Uistrict 13 � , � 1,. 3 ITAL NEIGHBORHOODS OB ECTIVE: , TO MAINTAIN ANQ ENHANCE THE IDENTITY AND UNIQUE QUALITIES • OF ST. PAUL'S NEIGHBORHOODS. Well-defined neighborhoods and strong corranunity organiza•� , tions are major assets in St. f�aul . Organized neighbor- hood activities create a sense of community and identity � in a large city, fiacilitate citizen involvement iri city government, arid foster an overall sense of ownership ofi St. Paul in residents and �usiness proprietors. Neighbor•- hood and commercial organizations have proven to be � critical ingredi�nts in improving neighborhood stability throughout the city. PULICY 1. 3_ I ° L THE CITY WILL ENCOURAGE THE CUNI�INUED UEVELUPMENT OF VI'fAL NEIGHBORHOUDS �Y CUNTINUING THE NEIGHBORHOOD PLAN�- � IVING PROGRAM ANU ASSISTANCE TU NEIGHBORHOOD GROUf�� ANU (;UMMERCIAL UEVELUPMENr NSSOCIATIONS, I'OLICY 1.3-�: , THE CITY WILL WORK WITH NEIGH60RHOOD ORGANIZATIONS TU DEVELOP THEIK PROBLEM-SOLVING CAPABILITIES, INCLUDING WURKING RELA7IUIVSHIPS WITH THE SCHUUL DISTRICT, LOCAL � LENDERS NND LUCAL �USINESS COt�1MUNITIES. PULICY 1.,-�,: � lHE CITY W1!! tNSUKE 1HA�i� ITS I'UBLIC SERVICES AND 1h1PkUVF - MEN�fS AR� �ISTkIBUTEU tN A MANNER l HAT 6JILL REINFORCk H��ii;� ENGUURaUf� i'I?►`J11]F" JNVf-:S1MEP�� INN �Jk�iGH�ORHUOUS_ � � , � � � �« i 1 , 1 , . Q I D OJECTE: TO ENHANCE THE CITY'S CHARACTER BY PROMOTING QUALITY DESIGN IN NEW DEVELOPMENT AND COMPATIBILITY AMONG ' DIFFERENT LAND USES. Architectural quality and land use diversity are two � major characteristics of St. Paul which make this an exciting and attractive place to live. Some land uses, � such as heavy industry and residential development, are generally not compatible as close neighbors. But many � urban activities can and should co-exist in close proximity if carefully planned and executed. � Careful design, incorporated into development plans from their inception, is critical to achieving quality develop- ment. The city has a major interest in promoting , excellence in design, as we11 as the means to ensure qua1ity development. POLICY 1 .4-1 : � THE CITY WILL PROMOTE CAREFUL DESIGN OF ALL NEW DEVELOP- MENT AND REDEVELOPMENT BY STRENGTHENING SITE PLAN REVIEW PROCEDURES IN THE ZONING ORDINANCE. , POLICY 1 .4-2: PROJECTS RECEIVING PUBLIC FINANCIAL SUPPORT WILL BE � REQUIRED TO DEMONSTRATE EXCELLENCE AND INNOVATION IN DESIGN. Adjacent land uses are not always completely compatible � with each other. Buffering can be used to alleviate the negative effects of one land use on another. Bufferiny techniques include: , 1 . Incorporating topographical features such as slopes; 2.Creating linear parks ; , 3.Landscaping, berming or fencing site perimeters ; 4.Maintaining building exter�ors to complement adjacent land uses, and S. Insu�iating adjacent buildings to control noise. � i 1 1 , 15 � � POLICY 1 .4-;i: , IN CASES OF INCOMPATIBLE LAND USES, THE CITY WILL USE THE TECHNIQUES LISTED ABOVE WHEREVER POSSIBLE TO CREATE OR IMPROVE EXISTING �UFFERS BETWEEN LAND USES. , POLICY 1.4-�t: THE CITY WILL ENSURE THROUGH ITS SITE PLAN REVIEW REQUIRE- , MENTS THAT ALL NEW DEVELOPMENT PROVIDES ADEQUATE BUFFER- - ING AS PART OF ITS DESIGN. Landscaping is also an important element of quality urb.ar� � design. Landscaping can provide visual differentiation among uses, year-round relief from man-made forms, and � emphasis or identifiication of major urban elements. Larid-- scaping is ari important ingre�ient of the city's beauty. PULICY 1.4-50 � CI7Y LANDSCAPING PROJECTS WILL B� DESIGNED TO PROMOTE YEAR ROUND ENJOYP+IENT AS WELL AS T.0 PROVIDE VISUAL DIFFER- ENTIATION BE7WEEN LANU USES AND LEVELS OF ACTIVITY. � POLICY 1 .4-6: 7HE CITY WILL EMPHASIZE GATEWAYS AND EPJTRANCEWAYS TO THE ' CITY THROUGH LANDSCAPING. P�LI�Y 1 .4-J: THE CITY WILL CONTINUE ITS BOULEVFiRD TREE REPLANTING � PROGRAM. l;areful planning and design cannot always eliminate lanci � use conflicts. Ns the city has developed, some uses i�ave become inappropriate to their locations and are iiuw viewed as nuisances. A junk yard within a residential rieighborhood is the prime example of a conflict tl�at ' redesign a7one is unlikely to correct. Under traditioiiul zoning, nonconforming uses may remairi for years ; it �it wishes to eliminate them, the city must either wait i�a�• , them to leave �r purchase the property. Waiting is frustrating, buying the properties is expensive. Ti�no- vative use �f the city's regulatory authority tn promote � the health, safety and welfare ofi its citizens is needeci to eliminate these inappropriate uses more expeditiou� iy PULICY 1 .4-t3: � THE CI7Y WILL EXPLORE METHODS OF REVISING THE ZONING ORUINANCE TU REMOVE ACTIViTIES WHICH HAVE BECOME NUISAfvCE. � �'�! �'HE AREa� AROUND THEM, � �,, i 1 � ' � In addition to uses which are nuisan�es, proper�y which is not maintained properly can become damaging to surrounding properties. Corrmunity pressure can sometimes , result in property clean-up, but is not always effective. In these cases, the City must provide the means for requiring that the condition of the property be brought ' up to an acceptable standard of maintenance. � POLICY 1 .4-9: THE CITY WILL VIGOROUSLY ENFORCE THE PROPERTY MAINTENANCE , PROVISIONS OF VARIOUS CITY CODES AND ORDINANCES WHICH ARE DESIGNED TO PREVENT INDIVIDUAL PROPERTIES FROM BECOMING COMMUNITY EYESORES OR HAZARDS. � 1 .5 CONNECTIONS TO DOI�IJT04JN Over the past 20 years, urban renewal and freeway con- , struction have cut off the central business district (CBD) from adjacent neighborhoods. Freeway interchanges, park- ing lots, railroad yards and vacant parcels now surround � the downtown. Much of the CBD's perimeter is planned for redevelopment in the 1980s. New land uses in this peri- meter should be designed to provide a safe, convenient transition area that emphasizes the interdependence of � , the CBD and adjacent neighborhoods. POLICY 1 .5-1 : ' THE CITY WILL WORK TO IMPROVE TNE CONNECTIONS BtTWEEN THE DOWNTOWN AND ADJACENT NEIGHBORHOODS BY: 1.PROMOTING THE CONSTRUCTION OF MEDIUM AND HIGH DENSITY , HOUSING THROUGHOUT THIS AREA; 2.DEVELOPING A REUSE PLAN FOR THE RAILROAD YARDS EAST OF DOWNTOWN; � 3. ENCOURAGING CONTINUED PRIVATE REINVESTMENT TO REHABILITATE BUILDINGS IN ADJACENT NEIGHBORHOODS; 4.PROVIDING BETTER ACCESS TO DOWNT04JN THROUGH TRANSIT AND PEDESTRIAN IMPROVEMENTS; 1 5.DEVELOPING DOWNTOWN FRINGE PARKING FACILITIES IN LOCATIONS THAT WILL NOT DISRUPT OTHER LAND USES OR BLOCK ACCESS TO DOWNTOWN; � 6.ENCOURAGING STATE OFFICE EXPANSION TOWARD THE DOWN- TOWN; AND 7.MAKING ENTRY ROUTES TO THE DOWNTOWN MORE CONVENIENT � AND ATTRACTIVE THROUGH LANDSCAPING AND STREET IMPROVE- MENTS. ' , 17 � 2.0 ENVIRONMENTAL MANAGEMENT , , �INTRODUC TON OBJECTIVE: `— , TO ENSURE CONTINUED DEVELOFMENT OF ST. PAUL WITHIN THE � CAPABILITIES UF THE NATURAL ENVIRONMENT. , The natura'I resour�es of the St. Paul area and its environs--the Mississippi River, the rich forests and fertile farm land--were the basic reasons the city was , founded. St. Paul is now a major urban center with a diversified economy no longer dependent on these natural resources a1one. Yet the environmental setting re�ains a , basic element in the city's continued physical , social and economic well-beir�g. Certain aspects of the r�atural environment are parti- � cularly vulnerable to disruption by everyday comnunity • activities. �they include soils, slopes, water systems arid yuality, habitats, air quality, and quiet. Aside � from their aesthetic value, these resources are important scientific, educational , medical , cultural and historic assets t� t'rie city. Over time, they increase in value � and enhance the yuantitative and qualitative advantages of living and working in St. Paul . Tu a large extent, most of the significant environmental ! resources are geographically concentrated within the designated Mississippi River Corridor Critical Area. For� this reason, a special separate plan has been deveioped � for the Corridor. �xtensive citywide environmenta"I ana�lysis was completed several years ago and has ueeri incorporated in t�e Ftiver Corridor Plan includiny , specific development cantrol rEgulations such as the fiooc�- Nla7n rrianagement ordinance. This sectiori of the Land Use Plan, therefore, addresses more general citywide environ-- mental concerns that have been extensively examined iii � bac:kgrouncl studi es. Un a ci tywi c1e bas i s. must ofi tii�: 7 ands contai ni r�y envi ro��- � rnentally sen5itive elements are publicly owned as par•ics or �pen s�ace aiid, t�ierefiore, are not subject i:u the direct impacts uf development. Some environmental cun- � trois, administered by the city, state or federal gover•r�- ment, already affect the use and development of priva�e property, such as the fi'ederal Clean Water Act. There ar�� certain elements of the natural , environment which reyuir� � greater attention if development is to occur witi�oui negative impacts: poor soils, loca�l drainage patterri5 , anci r•ey7 una�l � i.r �nu WdLet` yUi�I 1±'y_ , , �� ! 1 � In addition to the potentially negative effects of any development on those specific environmental resources, consideration must be given to the potential effects on all environmental resources of major development. Inten- ' sive new development on large parcels of land can adversely impact environmental quality on surrounding property, as it creates many sizeable opportunities for ' environmental damage. Such damage could relate to poor � soil conditions, steep slopes, local air and water quality, drainage, or destruction of wildlife habitat or , other vegetation. Monitoring large-scale development will enable the city to manage it in a way that will reduce or eliminate its possible negative impacts. � 2.1 MAN GEMENT 0 St. �aul is a mature city with relative y few remaining :�ENSITIVE RESOURCES characteristics or areas of environmental sensitivity. , However, certain environmental features pose significant development constraints: soils and steep slopes; vegeta- tion and habitats; water systems, including wetlands and � floodplains; air quality; and quiet. In particular, conditions arising because of poor soils or local drainage patterns must be more fully addressed by St. Paul . Other issues--notably air and water quality--must be dealt with � i r� a regi onal context. � 2.1 .1 SENSITIVE RESOURCES A.Soils and Steep Slopes Soils vary in composition and bearing characteristics and ' are not uniformly appropriate for all types of construc- tion. Development in areas with slopes greater than 12� or with unstable or weak soils necessitates special ' efforts in site preparation, construction, and erosion control. Later, clean-ups and property damage costs are usually borne by the public (Figure 2.1-1). � B.Vegetation, Habitats and Water Systems Vegetation promotes public health by filtering pollutants ' and dust, cooling and conditioning the air, buffering noise and aerating and binding the soil . Greenery pro- vides visual attractiveness and relief and enhances property values. Vegetation also provides habitats for i , many species of wildlife; more than 350 species of birds, mammals, fish and reptiles may be found in St. Paul (Figure 2.1-2). These animals aid in the control of � insects and small rodents, and together with their habitats provide educational and recreational oppor- tunities for r..ity residents in close proximity to the�r � homes. � 19 ! � ��1GURE 2. 1-1 POOR SUILS ANU STEEP SLOPES � �� ► `"IIE 8 ___�_1^ �� , --^,--- � ,, � � y �� " � � � � � �i)i � � : a ' w MINGTOH � ' W� . E E � ' MJ ¢ � ��r NIE 1 � � � MNWV �4 0 ' wHEE�" I � i Q I � �' II�I _ ._ _ m Ly L r - � r� �� 1� W mui �wE.' . 15 � ' � i�'y'. v,,. �� ——- � 1 ` z 11 g '� w� lyN. w� . �rr III �� II) IIII I ��' �U �qyb I . 1?,.,�� ' � �� ' � t ' � � � . }� a�� ''�� woHr sr N 1�..�.:=�''I `'1I�� M� . � �111� �.�,., � ;..� Y �wF � � � � �� :t,�w, y, . f�"��. � sn�{ ' 'wz,q� � n.r��wu +� x 1 I " �� . 1' .� � �, I I�I�I ' :�.� W � A! , _ f � ��I � W � E fi:n St : '..:: � a 2 � V�IVER5ITV S � `i�� F r I. �L•! I � � F . a � 1 9s Y��y , � � ��:�:�_9. �� 'i K rnu+sr�xi ;.c � � ��. � y g "� � .`* suani, rue �, � � � �� g � '�' I''' /� __,'I..9 p'^ ( II� � J� � a ' � P � � >r a�r+ ,ue � �1 � ��y,s`��,F`�' �i� �� . � � � � JFfFERSCN M/E 1 I� '� ; � ' __� �.' Cf Si �!II� � � � :'�-! � � �'i 1 R�.1OOl^n qiE �' '�@J � I � � � \ �+,�. � � . R ' s. / � ,I, �kq_ .� � Z �' � � P' ' /.�� Y�_, � � � � , _ � � i i�/ . � �' ; � � � � � � !_ ! �� ) ;. � � � ruao � r�wr � nro a<wr¢ � m ,�/.{i ._._.�. w wrrv a�s Sk � \ ,,-' „y�� t' ; , , I��,, � � Y'� '� � � � i� � E� ' �/ '��,;�� . �' �Illi ��.� .� ,� ��;,,'� �� . ,�, E ' ��" �� ;, i� ;� ti � ��,�. i ', , `, ;� � i �:% '��,�� •�� ) ' � ��I `,1 " .��+= i `?' '� �. w, �� i�� ✓' �:.\`� I / � I!� 1 ' � / �;✓' , t 1 �. /+�1�_ �„�' 'I..1 r( � 1 JL`.��%! " ',�I'' ' ��///%%i PEA�r sur�s �II ;..�---`:_-:.�:, IIIIIIIIIIIIIIIIiIII h ILL UVER 4�fE1' SUBSTftATUM � _"`' -, SLUPES 1U�15� � � :iLUPES UVER 15% � � � 20 � , , , FIGURE 2.1-2 P�TE�ITIAL REMNANT NATIVE PLANT COMMUNITIES L�M[MTEIf1 ME. M�. �'i IvE. � �F(� ��j] � I _ .__ � Yn �4 � y' � 0 W NRWttN NE. � E��RINOION t q ,t k' � .nara � . � w4e�d' � E Nr �VE i como � w r.uanean we. � �� wNmnn w� ' +' ___ i ',� � � � � ., , , " � � E'��' , IY . FRONT SL N — G9E Sl �G9E S� A.HCE [ �/ LLWO.{� �9 ,� � � � � � p��, �{ E M St 1 � � W S1TMaE � � ' q✓' AOfF1WN� NE i � ¢ �� Oy" � N . E EM 91 W6WN � � � � yW � � � � � Ut�laE0.4TY O �' � E. ?C St � F , � i d 2 2 w � � �w � �� ,�,E eua�s w� _ ; se�e. w�. — aw ':�:�1 . � � � � -� vu,yq�, \ �OFa ' 1 : f 1 u i/.MT NE. rn � I' � `._ ♦ � � yt / 0.'� � � j�'S � � s � � Tq � aM �vE 5 <,S \ ��fp§ � �, 8 d ' � � � � �. .�� ROe� ' . ' .EFiERSaN NE •••:• :L � (FOfGE 5� � � ��:;:� 1 (uNlXl fN .�rF � � � � 3! � '•1/:�: .} a � � r '1:;;;pi P � i � � � a _ � � � . .:�:�; � 3 � ` a� '1� � � r-' � x.. . ?o � � � � ¢ � �� w a�s ah i� a w«was t ' •'j.::'. i . R � �� wr � � . ___,, : � � � a ,� ;� �,. .:`;y E ' \ � AqNTtEK ME. � \`� P� n 9 / \�\ nVE � � EIX:GU.BE FD / \\ ::. � ; �.` \ ;' �t, , k:�:. v �Q N �a� \... ,� � ''`;, �� ' ._ , �\�� -- � ��.. ��-- -- �-, �' 0 1�IW �WO ww reEi ...... r-�r—r�—t �<:::::::::::;��::�::::::>::::>:::::��3 AQUATIC COP�1f�1UNITY ,M��E �,......._._.__....__... ' FLOODPLAIN FOREST COMP�IUNITY � � r BLUFF/CLIFF COMMUNITY i 1 1 �, 1 - � ' FIGURE 2.1-3 WA'i'ER SYSTEP1S ' �.A�N,E� � �y � - m ''___'�� HOIT p/E � "F(`fi � � � � � , I i � � �RLNGTW NE. �n �w� E �qI.NGTCN id �T tj MDMR� Q � �W NMEELV � � � E rvv Ak , C� �'p'� � W MMriN�D MIf w W%y51 ��f�, �'�4 � �f. __� { �u d �MYN�MA �YE N�ItH�'�p�t 1 ; � � 1 � � FfqNt 5! C� • � VSE ST � �� r/` � � aEnCE B�'CEH � !y T�llM E �lf �' � w � E �M St � �R1Pq. � aKAA�t%iE .' � , i "kqy � w � rw�crww w�. � N v � P r� �, z s� � � � �rwa � q� W O '~^ � �� E 6�n ST I �u r t � � IM,EIiSITY � � � E 3ra ST � N = 4 ` �_9. � ;, ,_e, a � � - � �:;f ::: ,_�. �,�. ,� � _.,� :�{ti:� � � ; SE�ev rE. aro � �Y ..� �P �O � / g su.... � � %� '�''�• ,: p � ♦ ' ,'•}•; q,no �� ••'k};ti{;•$• �:•.� ` � at. t.IAH M T �JS i, '�ff� ^ �: .y /I � / 'g" �' �y.i:•l:l'�••:••• lY••l••,••��• �1 � . \ � ..• 9:;;:::�:�:;:�;�� SC t HN'1 .[FFERSON NE _ __i '::•}:v.,; C '�:•yk•}}::•' 8�`� ' � ' .:;�•••• C£OfGE 51 � �•+.•l::•�•:.•J•�• � P �u . �� IfT4C R ND0.'H NE � d r/+ Q $�'��•� :} � �L d � $� 1 w � "0 R �� S z ? ; Y� � � aq� S N d�g � � ?`:;:` �j f W W '� � a � 1 � `�' � ! �� •�ti1. • � 4. ' � � � r.�o wcwr � � orro w uw us�r �G �c nvavas sr {+..,�'�}�' � r � raa 4 w�wr � � .,r; g $ $ �' ecf�. � � F: �ew�a[�u a[ $ ,�. .4:5 . N.r; � �'� - •• `�}.,••�f• �� . EOWI.BE fb `' •,•,,/.�' •{!ff•r I6� � � �cJc � rL• • ��•4j• � .;t ! f4{:� � .;�� aK � ::'+�`i'� / i :;t � �•r�'�' %� � � � :?ti �I o zav� a..., „ „ , �---�--��:-�� - SURFACE WATER MI , FLOODWAY . .y. ,>::..•`:�; ' '`'''�'�'''`' "```'`� FLOOD FRINGE 's:K:•r,.:L.s:c:�'<�:r.::::�� ., i �� WETLAND � � ' 22 ' , ' ' To maintain an adequate quantity and quality of water for all uses in St. Paul , underground and surface water must be protected from pol1ution (Figure 2.1-3). Wetlands aid ' in the protection of water quality by filtering potential contaminants. Wetlands and floodplains also reduce the impact of flooding, which is aggravated by the expansion ' of impervious surfaces causing more water to run off the 1and. Uncontrolled development of floodplains and wet- ' lands increases the 1ikelihood of property damage and the ' necessity for public expenditures on costly flood control measures, water treatment, and disaster relief. ' Inadequate or improper surface drainage can also cause problems of 1ocalized flooding and poor water quality in rivers and lakes. Drainage may be altered either through regrading of land or through the excavation or fill of , ponding areas ar wetlands. In the past, the city has had incomplete drainage information, resulting in incidences of improper deve1opment which have created or aggravated ' local drainage problems. C.Air Pollution and Noise ' St. Paul 's air is generally clean and quiet, although there are areas bf the ci�y where certain types of acti- Vities cou1d create air quality and noise problems. The most serious source of air pollutants in St. Paul is ' vehicular traffic; both emiSsions and n�ise are major irritants in areas like downtown St. Paul and the Snel- ling-University Avenue vicinity. Other principal sources ' of excessive noise air aircraft take-offs from Holman Field and Twin Cities International Airport and isolated instances of industrial processes which may be offensive ' to adjacen� neighbors. . AGING SE SITI E RES URC S Because of the broad scope of public ownership of environ- , mental1y sensitive lands, and existing regulatory measures, such as the floodplain district regulations of the Zoning Ordinance, there is only a limited need for environmental ' regulation in St. Paul . Specifically, three issues need to be addressed: properties possessing poor soil condi- tions, local drainage patterns, and regional environ- ' mental problems. ' 1 23 ' ' . ' A.Poor Soil Conditions , The �tamsey t;ounty Soil Conservation District has mapped the soils in St. Paul and identified those which are usually associated with clevelopment problems. Using ' these maps as a guide, the city can identify specifiic sites which warrant further investigation of soil condi- tions. An investigation of this nature, provided by soil ' tests performed by the developer, may indicate the need - for corrective measures, which the city should then requii�e. This procedure should apply to all proposals � for initial development of a property, or for new con- struction or major redevelopment �!'? other properties. F'ULICY 2.1- I : ' BUILDING PERMIT APPLICATIONS FOR NEW CONSTRUCTION IN . AREAS IDEPJTIFIEU AS POTENTIALLY POSSESSING POOR SOIL CONDITIONS WILL NOT E3E APPROVED BY THE CITY UNLESS ACCOf1- � F�ANIED BY SOIL ANACYSES AND ACCEPTABLE CORRECTION PLANS. B.Local Urair�age Patterns ' Better information is needed on local drainage patterns in the city if land excavation and filling is to be properly managed. Currently, the only permit criterior� , being used relates to the size of the area being exca- vated or fil1ed, rather than to the importance of that area to a larger drainage pattern. It is conceivable that a sizeab�le, significant ponding area could be fille�l ' in a series of small , "insignificant" steps that du not require permits. The preparation of plans for drainage districts throughout the city is essential to determir�e , where°and how excavation and fill may be allowed. These p1ans will a1so indicate the importance of other aspects of the drainage patterns to which attention needs to be ' directed. �QLICY 2.1-2: THE CITY WILL f'REPARE NLANS FOk SUBAREA Df�AIPJAGE UIS-- ' TRICTS, IN ORDER T0: (1 ) IDENTIFY EXISTING DRAINA�E PATTERNS; (2) REGULAT� EXCAVATION AND FILL AC7IVI�I�Y; AND (3) DETERMINE ADDITIONAL PU�LIC AND PRIVATE NCTIONS � NECESSARY TO ACHIEVE ADEQUATE ANU APPROPRIATE LUCAL DRAINAGE. ' ' ' 24 � ' . � � C.Federal , State and REgional Participation The City of St. Paul is not the only public agency involved in environmental management. The federal and 1 state governments are also key agents since many environ- mental concerns are not confined to one city. Many local air and water pollution and noise conditions are corronon ' to the Twin Cities region as a whole, and cannot be treated exclusively by one corr�nunity. State and regional agencies are best equipped to deal with such problems and ' should be supported in their efforts. POLICY 2.1-3. THE CITY WILL SUPPORT FEDERAL AND STATE ENFORCEMENT OF 1 -- ENVIRONMENTAL QUALITY STANDARDS, AND COOPERATIVE EFFORTS TO DEAL. WITH REGIONAL ENVIRONMENTAL PROBLEMS. , 2.2 AN GEM NT D C R L A few environmenta y sensitive areas warrant tota OF MAJOR DEVELOPMENT prohibition of all development activity through public acquisition or regulation. In most cases, however, the ' needs for economic growth and environmental protection are not mutually exc1usive. Development controls and design incentives will affect use and design, but do not ' render property undevelopable. Additionally, most develop- ment in a mature city like St. Paul is not of the magni- tude to have an adverse impact on surrounding areas � merely because of size or intensity. However, major new development or redevelopment must be managed with more care and appreciation of the potential for negative effects on the envirnnment, both on and off the site. ' This means that St. Paul should implement an environmental assessment procedure. The assessment would identify any envrronmental issues germaine to the site involved and Iattention to be given to resolving those issues. POLICY 2.2-1 : � THE CITY WILL ASSESS NEW DEVELOPMENT AND WILL ESTABLISH REGULATIQNS TO CONTROL DEYELOPMENT WITH TFtE POTENTIAL FOR NEGATIVE ENVIRONMEiVTAL IMPACTS. � The State of Minnesota, through the Environrtrental Quality Board (EQB), ragulates large developments of state cwn- cern to minimize neg�tive en�t.�ronmental impacts. �ecause , , of recent state legislation,' responsibility for tfie envjronaien�tal a�ssessn�e�rt of these dev�l�op�nents will be � � 25 ' __.. _ _ ._,._.._ � i largely that of the comnunity, rather than the EQB as in � the past. This 1980 law gives each municipality greater authority and control over major developments. It also requires that St. Paul develop environmental assessment � procedures that are both effective and efficient to enable the city to deal with this added responsibility. While in the past environmental assessments and controls ' have been cumbersome and often abused, recent efforts �to. improve procedures have significantly reduced such pro- blems. The recent streamlining of federal procedures under the National Environmental Protection Act and other ' similar efforts iri states and cities around the country should provide the city with ample examples. � POLICY 2.2-2> I . THE CITY WILL CUNSUL7 WI7H RELEVANT STATE AND FEDERAL AGENCIES TO RESEARCH, DEVELOP AND IMPLEMENT EFFICIENT ANU � EFFEC7IVE ENVIRONMENTAL ASSESSMENT PROCEDURES. The threshho'Ids �or the state's involvement in enviror�- mental assessment are quite hign; for example: I - For residential deve1opment: a minimum of 500 dwelling units; � - For commercial development: a minimum of 250,OG0 square feet of floor space; - For industrial development; a minimum of 175,OU0 � syuare fi'eet of filoor space. Most deve�lopment in St. Paul , with rare exceptions like Energy� Park, will not meet the state threshholds. lhe � city should investigate lower threshholds for its own consideration of environmental impacts. POLIL'Y Z.z-3: � THE CITY WILL INVESTIG�ITE 1HE AUVISABILITY OF USIfdG THRESHHOLDS LOWtR TH�1N THOSE USED BY THE STATE FOR IDEtJ- � TI�ICA7ION OF DEVELOPMENTS HAVING SUFFICIEN7 MAGNITUDE 1�(? WAFtRANf ENVIRONMENTAI. ASSESSMENT� � � � � 1f, � � 3.0 MEETING LAND USE DEMANDS � THROUGH MIXED USE CLUSTERS � � N R D I N B C . TO ACCOMMODATE NEW DEMANDS FOR LANfl IN ST. PAUL 4JHILE � MAINTAINING THE EXISTING CITY CHARACTER AND ENVIRONMENTAL QUALITY. � The previous chapters on city character and environmental sensitivity lay out essential parameters for maintaining the city's saecial attributes. They are the framework within which new development must be integrated. � St. Paul is beset by competing and shifting demands for limited residential , comnercial and industrial space. � _ The city does not have the vacant land area to meet these demands through continued low intensity development. How- ever, by clustering new development into more intense � areas, land demands can be met within the existing land use framework, maintaining and enhancing St. Paul 's special character with new areas of interest. � 3. LAND DE ND IN HE S Wit t e 9 s, s i ts in popu ation age groups, growt in employment demand and rising energy costs will place Ipressure on land .development in St. Paul. After 15 years of decline, St. Paul 's population is stabilizing. Yet housing unit demand is growing because � the post-war "baby boom" generation is reaching household formatlon s.tage. In addztion, many young adults now marry at a later age, creating an in�rease in one-person households, and an increasing demand for housing. Many of these people grew up in St. Paul , want to stay here, and_need a place to live. � TABLE 4-1 ST. PAUL POPULATION AND HOUSEHOLD PROJECTIONS 1960 1970 1980 est. 1990 est. � Population 313,411 309,866 277,000 270,000 Households 98,704 104,095 109,400 112,000 � Along with housing needs, new job opportunities must be found if the city is to retain the young adults who wish to 1ive here. The city has been losing existing employ- � ment opportunities. Metropolitan Council prnjections indicate St. Paul 's total employment must remain around 185,OOU throuyh th� 1980s to provide jobs to meet exist- ing city needs. As commuting becomes more expensive, � more residents will seek employment inside the city, increasing emQloyment needs. � � 27 � � One reason for lack of job expansion is the lack of � available land for new businesses. Less than 5% of the city's land is vacant and zoned for con�nercial or indus- trial uses. Much of this land is uneconomical to develo� � or too small for business use. If jobs are to be provided for St. Paul residents, and if the city's economy is to be strengthened, sufficient space must be available for � new or expanding businesses. St. Paul a1so lacks the energy resources to fuel low density development. Minnesota has almost no energy � resources of jts own and, thus, must import fuel . This increases energy costs here compared to many other states. Energy costs in St. Naul as well as the whole state wil�l � � sure'ly continue to rise in the 1980s. Energy resour•ces , rnust be used more efficiently and alternative sources must be exploreci. � 3.� IXED SE C S S C ustering nvo ves t e mixing of an uses in a patter�i re'latively more intense and dense than surrounding single � use developments. Clusteri�ng compatible activities is one method of increasing land use opportunities. By integrating activities spatially, land can be used more t efficiently and effectively. Some specific benefits ufi clustering include: 1 .New housing and business opportunities can be pr�vided � with limjted �iand area, accommodating demands without impacting the overall city fabric;. � 2.lio�tsing can be located closer t� shopping and services , increasing convenience and providing a market �'or a greater variety of goods and services. 3.Energy efficient, multiple-unit construction with � shared heatiny and energy resources can be developeci, improving energy conservation. 4.Transit service to clusters is more feasible econo- �� mic:a�lly, lessening dependence on autos and fuel suppfie�. C1usteriny emphasizes a more compact and intense m�ix of living, working and shopping opportunities within a giver� � area. Both horizonta1 and vertical mixing is possible. In horizontal clustering, different uses are located in separate buildings that are adjacent to each other. � Vertical clustering involves incorporating differeni but � compatible uses within the same building, typically ui� � � 28 � (' � � . �� different floors; this type of cluster is comnon in older commercial areas where apartments were built above first floor retail space. Using both methods of clustering is � possible in St. Paul . The proposed Energy Park is an example of a major mixed use development, clustered both horizontally and vertically. Energy Park is planned to provide 6,000 jobs and 1 ,600 housing units on a 250-acre' � site. Clusters can also vary in intensity and scale of develop- � ment. They can be as simple as the corner grocery and apartment building or as complex as the downtown with its mixture of high densities and unique facilities. Four �� categories of potential cluster development are proposed for St. Paul : � 1 .Regional Clusters (The Downtown). 2.Major Retail Clusters. 3.New Employment/Housing Clusters. 4.Neighborhood Clusters. � Each category is distinguished by locational and access characteristics and resulting development possibilities. � These characteristics and appropriate land use activities for each type of cluster are identified in Figure 3.2-1 . City land use controls and development incentives should � be directed toward the development of mixed use clusters consistent with this hierarchy. � POLICY 3.2-1 : THROUGH ITS LAND USE POLICIES, CONTROLS AND INCENTIVES, THE CITY WILL PROMOTE THE CLUSTERING OF COMPATIBLE LAND USES AS SET FORTH IN FIGURE 3.2-1 AS A MAJOR STRATEGY TO � MEET LAND USE DEMANDS IN THE 1980S. Several areas in St. Paul provide opportunities for � clustering (Figure 3.2-2). The downtown has always been and continues to be a major site for high intensity mixed use development. Six additional major retail centers in � or adjacent to St. Paul could also provide a focus for high intensity clustering. Several other areas of the city will experience new development or redevelopment i�i the 1980s; clustering is the key to using those sites to � their best advantage. In addition, the clustering con- cept reinforces the low scale mixing of uses that has always been a part of St. Paul 's neighborhood comnercial � areas and along its transit lines. � 29 � . __ __ +� � 1 •r N 1 N tn N �E C O N Z1 r- O W � E � U � rI3 U t � I--- r0 O +� N Q tn O U N a U r- i� N r N J • '� rt! O N N C C 4- � U +� O D U .0 E � O O N ' V) h N O O +� � •r N L N �F-� � O � � r O � C •� tn � � •r O C L �O O N i N +.� U v� O O O N C •r � L > � U rtf i. C S .a � O � N fl. C fl- r C � N Ci' 'C1 ..0 � N ,C E O E 4- � 'C3 O � Q1 i � +-� r- •r U O 4- � t� CO i •r rti N L rt! 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'�_ (.(➢.Mi \ �� 4 MMVLiJJU Nh i . `I_.� � �•l 'NE � I � (�� ' n}��•��',t.•• I ifYNT� Sl N � - tASE 51 � � `n •• •:• ' �;Aq y� '' A � �y�. yy L�vAtE/T✓I�J � iK`U)F 'aW' � W w � E )M ST• rn � I Y� � rv 5 �tJF11011n AVf [ S 8�� N N S kli S ¢ 1.�1fI1NN � � , } a aEro' °j � e em s. � �L � � � � � � . � � � e �m si � �' �` ••~••• '�•�} �'A i-9�' _� . :••(�: �� ..... � ��[ •��:�::';• . g .:.Ma�vw.i . sF �S sw6 wt �: :i•. .:;:,::. , - s��e. - -_ aro . � ` ' ` � ... . y;n µ� , � ,1 Y 9 E/Fll'^E� ..�I \ � � �A 4� �' ��MM� NE Yn �p y� �' � p�E. � • \..\ n� j, � �qo 4� � �. s � �?f � / 9st � ��\ '`� a9 4 � � I� �nN � It. yFt �� ` o ( I�' k � '' 1i ` � JOS f WNU '$ py �.C�� JEf[lf�XN NYE 'T 1 �� y M �� 'LCYY3 � 1 I `�_ ION(� •'I �•ft tl`�i NE ,// C' S'l �' ) ..� }� � l � .,l G � . � i � } � � � �� • � � � � � 9 --�-��-� � � ,� � �--- �� w , J�> , � � y � � � � � rn�o �� +P� �' v,ua,w c�is s4 i.n � � nrrwras � \ \,`, .u .dGHY. " � \`1 \I o � /� \ � �� ..g rx � � � � I, �`. _ E ' M��a, »� 'k I�.� �,J "',� � '. . � —. Enu'��wSS fLL � �� /I: \,1 `I f 4 �.�` �^, .�� N^ :, ` ' �" �r� �� REGIONAL CLUSTER (DOWNTOWN) ',`,�;� � � ' ' �. %, � � /�r � ��>% ��; � Y !'��'. . � :N��1 � ' ^ �`� � `.\`-� � 1 i' ` / 1 ` ti � '.'i•.:` C... 7 _ -�� • �'... 1 "- :<::��:�: MAJOR RETAIL CLUSTERS . ,, '. _ _ , _ , ,, � � �� , �i ,�' �� ^ !�-�—��---__ � � 1 . Hillcrest Shopping Center � 2. Phalen Shopping Center � ��: . �� ,�_, , 3. Sun Ray Shopping Center '""° � 4. Roseville Center 5. Midway Shopping Center 6. Highland Shopping Center � � NEW EMPLOYMENT/HOUSING CLUSTERS � 7. Chestnut-Eagle Street Area 8. Harriet Island � 9. West 7th Street Tank Farm 10. Energy Park � � Neighborhood Level Clusters 31 i � � Each site identified in Figure 3.2-2 has been assigned a r categorical cluster designation on a preliminary �asis. In implementing the cluster concept, each designation and the activities appropriate to that site should be � further explored. Other sites not shown on the map may exist which have the potential to be clusters. As imple- mentation begins, cluster designations may shift and new � sites may be added. 3.3 IMPLEMENTING The sites identified in Figure 3.2-2 all contain some of � CLU�7ER DEVELOPMENT the e1ements of a clustered development. At present, most have only the potential for creating a clustered arrangement of uses. Further analysis of each site is � needed. The potential and probability of success of each . as a cluster depends on the planning, market and finan- cia1 feasibi1ities of the site. Implementation of the � c1uster concept requires that these feasibilities be determined. Implementation of cluster developments depends heavily on � the ability of private developers to market and finance projects. For clustered development to be marketable it must occur where people want to live and where businesses � wish to locate. Market studies and other market infor- mation and use of proven design approaches will help to 'locate sites for successful cluster development. Public � improvements and services and special attention to desigr� can enhance the desirability of a cluster site. Mixing�incompatible uses will create an unsuccessful � development. For example, uses which generate large vo1umes of traffic, noise or air pollution cannot be combined with uses requiring quiet. On the other hand, � traditional separation of uses is not necessary when tfie uses do not interfere with each other or do not create external problems such as noise or air pollution. � C1usters, however, can incorporate a variety of �land use combinations. kesidential , retail , commercial , service, office, warehousing and industrial uses can all co-exisi � ir� a variety uf ways if designed appropriately� � � 31 � � � � � While market studies and other research can indicate appropriate uses for a cluster, careful planning is necssary if the cluster is to be successful . Development � of successful clusters must be consistent with the plan- ning program established for such mixed use areas. A cluster plan can indicate the appropriate scale and � density, mixture of appropriate uses, and integration with city infrastructure and development patterns. The levels and intensities of -mixed use clusters set forth in Figures 3.2-1 and 3.2-2 provide only a starting point for � planning each cluster. The actual mix of uses depends on the market needs of the area served by the cluster. � . POLICY 3.3-1 : THE CITY WILL PERFORM SUBAREA STUDIES AND PLANS FOR APPRO- PRIATE DEVELOPMENT IN EACH IDENTIFIED CLUSTER AREA. � POLICY 3.3-2: IN THE SUBAREA STUDIES, THE CITY WILL: (1 ) IDENTIFY THE � PLANNING, MARKET AND FINANCIAL POTENTIAL FOR CLUSTERS IN EACH OF THE OPPORTUNITY AREAS; (2) DETERMINE THE LEVEL UF CLUSTERING AND USES APPROPRIATE FOR EACN QPPORTUNITY AREA; AND (3) ESTABLISH LtiND USE CONTROLS AND INCENTIVES TO � ENCOURAGE APPROPRJATE CLUSTER DEVELOPMENT BY THE PRIVATE SECTOR. � One land use regulatory approach well-suited to accorrano- dating intensively mixed uses is the planned unit develop- ment. In this process , a complete and detailed site plan is required before any permits are approved. In exchange, jthe developer is given some latitude to "bend" precepts of traditional zoning. The result is usually a slightly unorthodox development that works very well and can be � highly creative. POLICY 3.3-3: THE CITY WILL REVISE THE PLANNED DEVELOPMENT ORDINANCE OR � DEVELOP A SPECIAL ZONING CLASSIFICATION TO ENCOURAGE UNIFIED DEVELOPMENT OF MIXED USE CLUSTERS. � Planning the cluster remains the key to its success. Although actual development should be left to the private sector, the city can play a major role in encouraging � clusters. Through further planning, it can analyze development opportunities and determine appropriate regulatory and financial jncentives. � POLICY 3. 3-4: THE PLANNING COMMISSION WILL REVIEW ALL PUBLIC ACTIONS INCLUDING LAND DISPOSITION IN DESIGNATED CLUSTER AREAS. � 33 � � � POLICY 3.3-5: � THE CITY WILL ANALYZE ITS FISCAL TOOLS TO DETERMINE THE PROPER INCENTIVES TO ENCOURAGE APPROPRIATE CLUSTER � DEVELOPMENT. Financia�l problems have occurred in the past because of investor or bank re'luctance to finance mixed developments. � In some cases federal and state rules do not allow band financing for a71 aspects of a mixed use project. If St. Paul is to imp7ement mixed use clusters, these � aspects of finar�cial feasibility must be addressed. POLICY 3.3-Ei: � TH� CITY WILL WORK t+IITH THE FEDERAL AND STATE GOVERNMENTS 'f0 IDEN�fIFY ANU ELIMINATE FINANCIAL AND REGULATORY PRA(:-- • TICES WHICH INNIBIT THE POTENTIAL FOR SUCCESSFUL CLJSTER DEVELOPMENT, � Savings in publi� uti�lity and service costs can be a major advantaye uf clustered development. However, if � clusters are 'located on undeveloped sites they may require public expenditures exceeding any social or financial returri to the city. Any new cluster areas should make better use of existing sewer, water, and � transportation facilities, and should not require expen- sive extensions ofi tPiese faciliti�s. PULICY 3.3-7: � THE CITY WILL ENCUURAGE MIXEU USE CLUSTER UEVELOPMENT IPJ AHEAS WHERE ADEQUATE PUBLIC UTILITIES (SEWER, WATER, POWER)�ALREADY EXIST OR WHERE THEY WILL BE EXTENDED WI1�F1- � OUT PUBLIC COST. Several of the cluster•s sites identified in th�is plai� �� in older parts of the city where public facilities need repair•. Repair• or replacement of facilities iii these areas would support energy efficient cluster development. � Some facility improvements will be necessar�y i� cluster• devel�pment is i;u be feasi�7e. POL I CY 3.3-�: � THE CITY WILL TUEN�II�Y NEEUED IMPROUEMENTS OF PUEiLIC FACILITIES NECESSAftY TO PKOMOTE CLUSTER DEVELUF�MENT ANU GIVE PRIORI'T'Y TO SUCH IMPROVEMENTS OVER INFRASTRUCTURE � IMP�tOVEMENTS ELSEWHERE. f�ULIC�Y 3. 3-g: � THE CITY 6JiLL ENCUUkNGE UTHER GUVERNMENTAL F�NU F'U�L1C UTTLITY AGENCIES T� MNKE SERUICE ANU INFRASTRUCTURE IMPROVEMENTS IN �[UENTIFIEU CLUSTER AREAS. � 3-� � � � � POLICY 4.1-3: ON THOSE LARGE VACANT SITES SUITABLE FOR RESIDENTIAL USE, THE CITY WILL ENCOURAGE MEDIUM TO HIGH DENSITY HOUSING � DEVELOPMENT. Scattered infill on smaller sites is possible throughout tMe c ty s neig orhoods on vacant ots of varying sizes. [ Some of these lots were passed over and newer built on; others are the result of clearance activity by the city. These lots provide a major opportunity to add housing � units to the city. Development of them will in many cases e1iminate eyesores in the neighborhoods. � Very few of those neighborhoods considered "single-family" are actually exclusively single-family. Most �re developed with duplex or even apartment structures placed through- out. Only the newest neighborhoods are single-family � detached zones which do not contain higher density resi- dential structures. In most cases, too, the density allowed by the zoning classification is lower than the � actual built density, because of rezoning subsequent to development. Therefore, in most neighborhoods the con- struction of a certain amount of new housing at somewhat � higher densities would not be out of keeping with the area. Certain types of moderate density housing, like townhouses, can contribute to neighborhood aesthetics and stability, by adding to the visual quality and attracting � reinvestment that otherwise might not occur. � POLICY 4.1-4: ON SCATTERED VACANT SITES IN EXISTING NEIGHBORHOODS, THE CITY WILL ESTABLISH CRITERIA WHICH WILL ALLOW NEW HOUSING DEV�ELOPMENT AT DENSITIES SOMEWHAT HIGHER THAN THE EXIST- ING ZONING BUT COMPATIBLE WITH THE GENERAL EXISTING PATTERN OF DEVELOPMENT. � � � � � 41 � . � � Adaptive reuse and conversion afford additional oppor- � ' tunities for adding housing units in St. Paul . 1'here are many churches, schools and other institutional buildinys located in the city's iieighborhoods for which the existiriy � r�eed is diminishing and alternative uses must be found. Some commercia�l structures in the neighborhoods or located along the city's cammercial strips are no longer beirig usecl. In many cases, these buildings are boarded up aridj l or poorly maintained_ Although some of them may be unsuited for housing because of a lack of area for parkiny or operi space, many cc�uld be creatively adapted to r•esi- � dentia1 use. keuse of such buildings conserves resour°ces and generates reinvestment while providing housinc� oppor- t ur�i ty. � � Canversioi� of sinyle� fami 1y t� two ur three-fami ly hon�e� � is another way uf prnviding housing choice. I� can alleviate the burdens of home-ownership, especially l for� owners who do not rieed all the space they have. It can a1so create additior�al housing units without consumirig additional scarce resour�ces, especially the smaller � housing units for w�ich demand is gr•owing. A Flanning Division study indicated that there are over 9,500` sing7e-- family homes in St. Naul which could reasonably be � converted to two-family use without requiring a change ir� zoniny. Nlthougn there appears to be a substantial number of � opp�rtunities fior adaptive reuse or conversian, �eyal opportunities (i .e. , those not requirin� a zoning charige or varjance) are distributed ver�y uneven�y throughout ti�� city. Because the desire to adapt or convert has not always coine from area�� or locations where it is currently �legaily permissible, further study is needed to determiiie what, if anythiny, the city should do about conversioris. Further investigation is also needed to identify appro- priate criteria for determining whether a particula►� proposal is an dcceptable adaptation or conversion; 1:h�se � cr�iter�ia would r•elate to density, lot size and widtli, structure size, pai�kli�y, arr�enity oNen space, and ettect on tiie surrounding r�eigtiborhood. The city`s yoais af � erieryy conservation and provisiori or housiny opportunity must be balanced against the gnal of neignborhood sta�ility and the nF�ed fior orderly development. � . � 42 � � � 4.0 DIRECTIONS FOR LAND USE i � INTR DUCTION The t ree ear jer c apters of t e and se an, on City Character, Environmentally Sensitive Areas, and Cluster- ing of Land Uses, established the parameters which will � guide land use decisions in St. Paul for the next decade. This chapter discusses the relationships between those parameters and six uses of land: residential , commercial , industrial , recreational , institutional and transporta- � tion. The constraints imposed by the character of the city, by environmental conditions, and by the need to develop land more intensively will have different effects � on each type of land use. Each section of this chapter first identifies demands to � use land for a specific purpose, such as residential or commercia] use, and then discusses the ways in which larrd for that use should be supplied in order to meet those � demands. Provision of land for a particular purpose may take a traditional form, e.g. , commercial strip areas or industrial parks, or it may be non-traditional , such as a comnercia1-industrial cluster. Impacts on other uses or � surrounding areas and design characteristics are also considered for each type of use. Tn this way the general parameters of deve�lopment are translated into policies � and recorrmendations which will give more specific direc- tior� to deve1opment decisions in St. Paul in the years ahead. � � � � � � � � 35 � � � ._._._.___.._-.__�_�_.._.___._..__. __.._.____..__._...__.___ � ' �l R�SIDE�N�IAL- ND ES �� OBJECTIVE: TU UETERMINE ANU SUPPORT THE MUST COMPATIBLE SULUTIUNS FOH MEETING HOUSIPJG UEMANDS WHILE PROMOTING ENERGY CC)NSER�� VATION AND NEIGHBORHOOD STt�BILI"TY. Iii i ts Iious�i iiy {�o I i cy �I ari, tiie city has pr�ojected tliat � approximately 1U,00C new housing units will be needed over• the next ter� years to accommodate the expected demand for• new h�usiny o�pnrturiities . 1'his demand is related tu changes �iri h�usehold characte►°istics, which affect the.� � sizes ancl types of housiny unit� that are needed ur� preferred. Housiriy custs have iricreased dramatical !y� ii� recent yearsy these ii�clude the energy c�sts ofi heat-iny � and uf transp�rtatinn ��ssuciated with tlu� location af i�he dwe'I�lirig unit. Ris-i+�u costs w�ill a�iso affeci: demand fu►� �er•tai n types of hou�;i iiy i ri cer�tai i� a�°eas of the ��i ty. Most important'ly, the City's housiny goal is to p►�ovide � opportunities far every stage ofi a person' s life cy�:le:, from childhood, to yuung adult, tu f'amily, ±o retired � empty-r�ester. T� do this, 1:he city must increase the huusii�y stock. Lim�ited vacant 1and and existing neighborhood develor►-� � ment patterns will act as constraints on the supply or new residential opportunities. lhere are a nu�nber• of � opportunities to provide new housing, however•, inclu�ir�y c'luster areas, large vacant sites, and smallei�, scatterec� vacant sites within resider�tial areas. Additiuiial aptiun� for providiny riew dwelling units inclucies adup- � tive reuse of r�ori-resideritial buildings and conver•sic�ii ot 1ar•ge single fami l,y homes tc two or� threc� uiiit residence� The cnmpatibi lity ofi i;he r�e►� housiny struci:ures wii:h thu � areas surroundi r�y them i s the key tu ivai ntaini ny nei gfibo}�- hoocl stab�ility, Energy conservation must zlso �e consi dered a ii�iyh priurit� in the �rovision of new liousi►��: __ .____.__��_.�_._----^._..___________._._ ----....�_.._.___.- _--.. � 4� 1 .: 1 RFSIDENTIAL I�AND DEMAND 7wo factors v�i I I i nf I ue►ice r•esi deritia l 1 and demaii�J uver• � the i�ext teri tu ZU years: hous i ng preferences and custs . associated w�ith h��usiriy. A.Huusir�y Nrefer�nce� � Housir�g Nr•efererices ancl clen�and wi l l I�e ii�flueitce�l ��t��n,:�t•i ; . k�y iiuusehu I d :,i z� anc� yruwth i�� the iiurnbei• ��t iiuu�:�i�,.,i ci�: ll�e aver�aye huuse�iulcJ iii 5t_ Naul ha5 u�cl iiie�l �ii� �,�i,�� fr•um �3. 1�3 uersuri� 1ii Iy6U L�> >.�� Iy �.4Ei �ersuns ir� I�+i�;. �fl l': C'I:?r Y�E,'(.�Uf'�!(111 1'. !Illf� I�Y'lllhll'�t �'�.� l,t: 'i'�y('� ;�y`�iUtt , �'f�� Y, ' � large number of young adults living alone and marrying � later, and then having fewer children, and the growing proportion of elderly people in the population, who live almost exclusively in one and two-person households. This � trend toward smaller families is expected to continue through the decade, increasing the number of households in St. Paul from about 109,400. in 1980 to 112,000 in 1990. � B.Housing-related Costs Housing costs will also affect demand. Such costs have more than doubled in St. Paul over the last ten years. � Between 1969 and 1976, the estimated median value of single-family and duplex homes increased from $18,880 to $32,600, in 1980, this figure was up to about $40,000. � Energy costs have increased even more dramatically; the cost to the average household in the Twin Cities area, for all energy resources including those used for trans- � portation, rose 56% between 1977 and 1979 alone. The combined effects of rising costs and smaller house- hold sizes will create increased demand for smaller,one � - and two-bedroom dwelling units for both ownership and rental purposes. Energy considerations also indicate the desirability of common wall units, which are more energy � efficient to build and heat than single-family houses and are generally built at higher densities. In addition, transportation-related energy costs and consumption can � be reduced bu locating the new housing in close proximity to shopping and with good access to transit. � 4. . SI L S PPLY The supply of land for residential use and new housing oppor�unities is constrained by the general scarcity of � vacant land in the city and by the existing development patterns of the neighborhoods. There are sti11 numerous opportunities for the provision of new housing, however, � in terms of location, type and density, provided that design and energy conservation are given adequate consi- deration. � A.CONSTRAINTS Land scarcit� is a major constraint on all activities iri S�. au , including supplying additional housing. Accord- � ing to a January 1980 inventory, 755 acres of vacant, residentially zoned land exist within the city limits. Due to poor soils or steep slopes, much of this land is � unsuitable for residential development. - Existing residential development patterns in our neighbor hoods must also be considered in locating new development. � The city's neighborhoods are dominated by low density, one and two family homes. Architectural styles are relatively homogeneous within neighborhoods. Higher � density housing and corrmercial developments, which generate traffic, have generally been located alony � 37 � � � cu i l ector• aricl arteri al streets. l hese characteri sti cs �t � uf uur r�eighborhaods are va lue d hig li ly by ci ty resi den ts. New resident�ial development must be located and design�d � tu r,omp1�iTierit t.he estahlished resideritial patter•i�. ldea l ly, a l l riew ►�c�s i denti al develoNnient pr•oposa f s wc��.j i u L,e des i yriecl tu meet an ti ci�ated hous i ny demands antl � eneryy conservatiun i�eeds, and still niaintain the exi�i:ir�c; r�e�ideritial �levelo�n�ent ��ai;terns. ln reality, cont�l�ct�; iiiE�vitably ar�i��r�. The ol�jec:tiv� of the city's resider�- � tial Ia►ic1 use �ul ii�ies , ther•E�tu►�e�, wi�I�I be to suppor•t ti�use re��idential suuplv ��ru�.►osals that ir�cor•porate all � t:hr•ee c:onsi�er•�t�ion� i.c� i;ii�. maximuiri extent feasible. U.U ortur�i ti F,:� � �F� Fuur ar�eas offe►� thE� �areatest �utential tor ac:ccm�medatinc� r•esidential la►�cl u�uiands while promutiny energy consei�va� � t�i un arid riei yt�bor•huud ,tabi I i ty: 1 ,C I u>t�r Ueve I��inerit. � ?.Large Vac:arit �i te�. 3.Scattered Irif i 11 on tima I I er� Si te5 . �t.Ndapt�i ve keuse of IVoi�--kesi deiiti a l St►,ur.tur•es ar�cl l;c��svc�� s�iu�i ufi EXistl��g �>inyle i=ami ly Structur�es to hicr�� U�3ii-: � ��iyure ��. 1-�I shuws the luc�tiui�s ui� the i7iajot• cluster areas and �I��r•yN vacar�fi s i t��s aE�prupri ate fiur hous i uy_ � NULI(;v �. I - I • � IFIIlUUUH PL_ANNIfdr, L./lWU USE: CUfV�I�RUL� NIV� f ISCAI_ 1N1.'L-WTIVE� . lH�: l;I7Y WIL!_ F'I;UMUTk- Af�NRUPRI/lTE ItESIDEfJ"IIl1L t1EVFJ_UPMI:fJI lfv �:�ICN Uf 1"}I!. I-t►U�2 UE'f'UIt1�Ulv T 1 Y' I YI'k S. j C I taster c.leve l u��ieiit.:, <<►�E� a{,�r•u��•i ate s;7�:��; 1 IJ1� IIl:4�a w�i��l�i�t __- ---- _ _- uen�7ty huus iri��_ The i�eiiefil;, uf tfiese lui��t iuiis af'.� � L.vutul�l. � i�•�� . rl�e� ��ti�,��t: t.ii�� luw-uei��. it�� i��tti�►�� +.�� 'riN inaj,�r•ity ui rieiyhia�� huods Y.liat ar�� redonniiac�:�u I�y �n��:� aiicl t�vu-faiiii � ,- i�uniF�� L'Y lu��a�;iiiy !�r� niajc,r s1::r�eE:�i; i�, �,ruxinri ��Y u� � uiinner:•i�al ;;ei�te►s t.i�e,y ena�le 'riie �_►affi� � r►iry yerier�at�� ,,r a,r t�iF� iuu iur �.�;re:ets , ther�e�y .!v��'s �r��; .. . Iil�. t`H�I`,t' '1� � rl;tlt�_;f ;�!ii r�ii r�!_�,�►•I�'. �iF��,hl�ur•hc�u�l ti�� ;i�.lE'ii?; �� ' • � � �� FIGURE 4.1-1 RESIDENTIAL OPPORTUNITY AREAS IAHPEN�l�Hi wE. . h� � _�—'__ T w �qvi nvE �t � L 3 � 3 ',� � 3 � � "__"'� C. \ _ u.Yn(:�ce� aE. N � �W� -. E ivaqG�ON IYE f g �V.wv � �, vrNfEL�' � Te � � '� �� 1_ �aE � 9t� � J� r k ` y „ • �i cow ��\ � w,r�v�a+� nvc � � g � � aE ,.W'�"�- "t. � ' ' ��_� 11 ----- \� Y ! 3 , .� '� `� � 5� �� , � •.' . � i�%.w,. F _ 5, � N � � VSE S. '��. .� h.: q,F � N � � � a�wnrEH��I rz � �ou F � r � E � $blpyr.� 1•�r J � SNNtx+E �.. N If u �'kyt.�r � p r.�aEww�. art € sr � Itl s � � 16 � E gm � ' � � � � �W � � � � UW'hH^�ry z 5• � `. � � v' �}f�r•C �}ti• {�.�.��.. � •f}:11 • .l. � v :<% •... �� '-s. •'';�::�r.. 4��` �, � � � � ,,i4:.. a �,�� S � � •��i�': � y �� ro � �2 � �p f � � . E �l�Mn„ `- � � 'FR � ,1� ' 'ff 4 1 S1Me1� N( S� 1`�' ! N % y� / �,, �ni�> �� Li � � s : � �S � � ? �+ / 9�� 9^ � � � '" � '� � 5 � �� 44 8 1 8 ` L � Y . � �Aw iuc .r / � � � __� � ?�R . A � �cwo .Fr�ensw wE a � I , 1 � �.�� b � �-�� <�� u 1/ �� 1 H N:+1aH NE e • '�j � �J St ' I� � � I � � � I � i� e 1 z �a ; � � ° ; i .r� � � � � � � I/ _�.1�"'� --' �%z i � �_.. E_ 'y ,R 1' _ , � 9� � � ¢ � � ' P � �� a.w. � a.w w � i oi io �� _+�6` a t,s'� i c, �e nwawme � �� i i ��l + '� 7 � � E� �� ' 1 �" �, ,� , . , ,:,,� ,. �;� ev+ru[�i wE � 'i� �� '� 4tr I ��. � � �� i, -_� ,. [uc�u.eE w, �{� �. p� #�` �� /i �� I �/ �1., �; �. , ; � �� ! �"" �, � � , �� i,' `,\ , � �°� � , � _ _ � _ ;�' ` ! ;, -,�= _�� ;j ,;�" A. CLUSTER DEVELOPMENTS �^ � �� DES I GNATED MT XE D USE C LUST ERS �''��''�'�''�'�'''��''��'''��'�^�''��'''�'''�'�'''��'�'�''�'�i; �ji 1 ' ■� `�_';�.�-��. l. Uowntown ` 2. Hillcrest Shoppiny Center � 3. Phalen Shopping Center 4. Sun Ray Shopping Center 5. Payne Avenue 6. Midway Shopping Center• � 7. Highland Shopping Center NEW EMPLOYMENT/HUUSING CLUSTEkS � ��Y� 8. Chestnut-Eagle Street Area � 9. Harriet Island 10. West 7th Street Tank Farm 11. Energy Park � s. LARGE VACANT SITES r� 12. Hillcrest �olf Course L 13. Etna-Birmingham Area (including Quarryl 14. Wheelock-Jackson Area � 15. Westminster-Arlinyton Area 16. North Capi tu l i;r•e�� 39 � � � Second, sensitive �location of higher density residential � development can have economic benefits. Location of structures along major public transit lines (bus r•autes) can encourage res�dents to use the bus, rather than � private automobiTes, thereby reducing energy consumption and expenditures. If this type of residential development is located close to stores and shops, new residents cari � have convenient shopping and help the local merchants, too. The designated mixed use clusters, especially Uowntowr�, � Midway, Sun Ray and Nhalen, contain a number of vacant or� unused sites suitable for residential development (Sites 1-7, Figure 4.1-1 ). High density residentia1 � development, corresponding to the city's kM-3 zone and downtown residential development, or densities of 37 units per acre or more, could be introduced ti�ere. lh�s � would promote energy efficiency and provide substar�L-ial new markets fior the retailers while complementing adja- cent 'low-density neighborhoods . Higher density housii�y vaill also be a part of the new employment/housii�g develo{� - � ments (Sites �-1`i , Figure 4.1-1 ). l�hese are sites whicl� will experience new development in the 1980s. They ai�e suitable for this type nf development because they wi11 � incorporate uses in a manner planned and designed to eliminate the normal conflicts between the uses. POLICY 4. 1��: , IN UESIGNATED MIXED USE CLUSTER UEVELOPMENiS, 1HE C11�Y WILL EIVCOURAGE DEVEL�PMEfJT OF HIGH DENSII�Y HOUSING. � Lar e vacant s�ites offer another op��rtunity to pruviae new c�using at higher densities. Mnst of the availat�le � sites appropriate for residential use are already zori�c! to allow medium tn high density development, wi;icii usually entails densities of 15 units or more t� tize acr��: � and resu1ts in townhouses or three-story walk--up apart- ments. 1"he anly major sites ufi su�stantial 5ize that ar� not z�ned this way are tiie private yc,lf cour�ses in ti�e city; snoulcl these become avai lab"le fur� clevelopment 7�� the futurey special consideratinn shuuid be yiven tu ur�e ser•ve sizeabie uurtic��s u� their o�en space as neiynb�r�- �i�ud airieiii iti e� � � � 40 � � � � POLICY 4.1-5: � THE CITY WILL ESTABLISH CRITERIA TO ALLOW SENSITIVE REUSE AND CONVERSION OF EXISTING HOUSING STRUCTURES. THE CRITERIA WILL ADDRESS DENSITY, LOT CHARACTERISTICS, STRUCTURAL CHARACTERISTICS, PARKING, OPEN SPACE, AND � NEIGHBORHOOD IMPACT. � C.Design and Energy Cons,i:derations Whi1e the city is advocating increased housing densities where possible and appropriate, it is not doing so at � the expense of the neighborhood qualities prized by St. Paul 's residents. For this reason, design of the new housing developments is very important. Good site layout � and building orientation and appropriate building type are all essential elements of a development design that is compatible with the surrounding area, regardless of density. For example, a large apartment block would not � be an appropriate building type if surrounded by single- family homes; townhouses would be more in keeping with the surroundings. However, that same apartment block may be � suited to a location on a busy collector next to a commer- ci al area. � POLICY 4.1-6: THE CITY WILL STRENGTHEN ITS SITE PLAN REVIEW FUNCTIONS TO INSURE THAT HIGHER DENSITY DEVELOPMENT THROUGHOUT THE CITY IS COMPATIBLE WITH ADJACENT NEIGHBORHOOD CHARACTER. � Cluster development and new housing on large vacant sites offer the potential for unified, coordinated site plan- ning and design. The planned unit development approach is, therefore, ideal in these cases. It should be utilized whenever possible. � POLICY 4.1-7: IN ALL CLUSTER AREAS AND UN ALL OTHER LARGE VACANT SITES, THE PLANNED UNIT DEVELOPMENT APPROACH WILL BE UTILIZED � AS A MAJOR TOOL FOR INNOVATIVE DEVELOPMENT AND FOR ACHIEVING COMPATIBILITY BETWEEN NEW RESIDENTIAL CONSTRUC- TION, EXISTING AND PLANNED COMMERCIAL AND INDUSTRIAL � DEVELOPMENT, IF ANY, AND ADJACENT RESIDENTIAL AREAS. � � 43 � � � 1 he di stri ct counci I s can be he'i pfiul i ri determi ni ny appr•u-- � Nr•iate uses for particular sites within their clistrict;: They cari aisu provide suggestions fior design criteria or� � cnnstraints applicable to these sites. Theii� knowledge of� �ocalized conditiaris can be invaluable in yuiding developmenta I'ULT�'V 4. I-t3. � THE CITY WILL WUftK 4JI I H DIS1"RICT COUNCILS TO DEVELOP SU�- AREA I'LANS FUR HOUSIfJG UEVELOPMENT CONSISTENT WITN ANU SUPPOR7IVE �F fH� CITYWIDE LAND USE PLAN. 1�HESE PLANS � SHALL IUENTIFY ll`J t�!(;H DISTRICT NEW OPPORTUNITFES FOR B07H MARKET RA7E I�NU ASSISTED HUUSING TO MEET THE CITY'S � HOUSINU PLAN PLANS. lt iy a inajar city yoal to reduc:e eneryy corisumption, i�� iwusiny r�s weli as in other �and uses. Cluster devel�p-- � ment is, ofi' �uur•se, a majur method fi'or cuiiserving enci�yy iri new eonstr•uction. However, our existing housing aiid �iew scaL-tered inf�i i I must look to difif'erent methods tu � r•eciuce the erier�yy neeaed tc� operaie a home. Rehabi 1 i ta-- tionJc�riservatiun arid use ofi new eri�r�gy resources are i;�ru ways to r•educe consum�,tior� of natur�al gas, electricity ancl fue I oi�i arid sl;uu1d �e encuuraged. � f'UL�t;I' �l. l�-J; �I�HE CI�fY 6�J1LL EMF�HASIZE ANU ENCOURAGE, 1�HKUUGH LAND US'c � NNU FINNN(;IAL INCEN'I'IUES, QUILDING DESIUIVS UR REHABILI�iI; - "I�IUN PRUJECfS WH1CH !N(;UKNOftAT'E ENEkGY CUNSERVNTIUi� TE'�'HiVI(lUES I�R U�;E �)F IZF;NE4;NBLE I=PJE:ItGY ALT�ERPVAI �VE� `�,�;; i: -i � ',,1L-s�l? I�i_��di s� � � � � � � 4� � � � � 4.2 CO ERCIAL LAND USES OBJECTIVE: TO MAINTAIN AND ENHANCE THE CITY'S COMMERCIAL AREAS AND TO PROVIDE THE FLEXIBILITY NEEDED TO ACCOMMODATE NEW � - DEMANDS AND OPPORTUNITIES. Commercial uses currently occupy only 2.5% of the land in � St. Paul , but they provide a much larger proportion of the city's employment and tax base. For these reasons, commercial land use is an important consideration for St. Paul. The city's commercial areas were shaped by the � forces that influenced the development of the city as a whole, such as population and transportation; because of changes in these forces, some commercial areas will � thrive, some will not survive, and some will adapt to the altered situation. � There are a number of things which the city can do with respect to land use which can help either to enhance the viability of struggling commercial areas or enable them to convert to some other use. The city can also ensure � that its comnercial areas are assets to adjacent resi- dents and the city as a whole as well as to owners and shoppers. � _ 4. . COM ERCI L LAND DEMAND � Demand for commercial land is affected by a number of factors: the population of the market, the disposable income of that population, the location of the land rela- tive to the population served, the transportation access, � and prevailing marketing techniques. These factors have changed significantly over the years in St. Paul . � The central business district (CBD), or downtown, was the first commercial area to develop in St. Paul. At first, this was where the citizens lived, worked and shopped. As people moved out of this area into the new residential � neighborhoods around it, the comnercial function remained and expanded. The downtown thus began evolving into the city's major retail center during the 19th century. � . Highly localized neighborhood commercial areas, oriented strictly to the needs of the surrounding residents , began � to develop during this period as well . As new neighbor- hoods formed, neighborhood businesses were created to serve them. To a large extent these neighborhood centers � still provide the same functions as in the past: groceries , drugstores, cleaning establ�shments and restaurants. ! 45 � � � As the city continued to expand, it became inconvenient � for people to travel downtown to do all their shopping, despite the advent of horsecar and then trolley lines. � The exposure of properties on these lines to potential buyers spurred corrmercial development on streets served by trolleys. The commercial strips along thoroughfares such as University Avenue, East and West Seventh Streets, � and Selby Avenue were formed during this era. They � remained important when the trolleys were replaced by buses. These major commercial areas were able to thrive � well into the 20th century. During the 1950s, however, a new phenomenon in retailiiiy appeared, the shopping center. This concept was based or� � � the use of automobiles. The shopper drove to the centet�, . parked the car, and was able to satisfy all his/her shop•- pirig needs at one place. This was much more convenient � than walking long uistances along a commercial strip, ur having to drive or take a bus from place to place. Centers like Midway and Phalen sprang up and were yuick � successes. These centers competed with the m�jor stores along the strips. Iri recent years, additional changes have occurred. The creation of the enclosed suburban shopping mall , an enor-- � mously successful innovation, has sapped much of the economic strength of other commercial centers includirig places like Midway. These malls need to draw buyers f�°orn � large geographic areas, and the,y have been very success�� fu7 at doing so. The e�oo l uti on of commerci al acti vi ty over the years iias � resu1ted in a wide range of commercial areas scattered throughout the city--from small neighborhood corner l�us�inesses reminiscent of the turn of the century to a � modern downtown business center incorporating all tt�e innovations of tne ly8Us. This diversity should b� viewed as an asset to the overall quality ofi city liv��iy. � Yet it aiso presents a challenge, because if the existinu comnercia� areas are not properly managed, their ecorionric: vitalit.y �vi11 suffet�, and so too wi11 adjacent resia�r�- � ti a l ar�eas. � � � 4E: � � � � ERCI L LAND SUPPLY The city can promote the vitality of its comnercial sector in three ways: by identifying appropriate loca- � tions for various corranercial development, by providing flexibility in land use regulations necessary to accommo- date appropriate changes in commercial activity patterns, and by implementing design and performance criteria for � comnercial uses. � A.Commercial Opportunities Four general locations are proposed for commercial development in St. Paul : (Figure 4.2-1 ) � _ l .Downtown 2.Mixed Use Clusters 3.Mixed Use Strips � 4.Neighborhood Centers Downtown and Mixed Use Clusters T e Downtown as retained its position as St. Paul 's � major retail and office location. But sharp competition = from suburban regional centers has caused considerable decline on a metropolitan basis. Recent infusions of new � development, a system of skyways, and new retail centers, such as Town Square, wi11 give downtown a new competitive edge for retail shopping in the east metropolitan area. � New offices, hotels, and housing under construction will also expand the market for further retail development. The Mixed Use Clusters already include significant retail � activity. New housing constructed in these clusters will increase activity and may sustain existing commercial development�. � Both the Downtown and the Mixed Use Clusters are appro- priate locations for a wide range of comnercial activity. The Downtown, however, should be planned as the major � retail center for t�e city. Smaller scale retail and service facilities oriented toward residents of the cluster community and adjacent neighborhoods should be � encouraged in the mixed use clusters. POLICY 4.2-1 : � , THE CITY WILL SUPPORT A DIVERSE COMMERCIAL ACTIVITY BASE BY WORKING WITH BUSINESS AND COMMUNITY GROUPS T0: (1 ) DEVELOP PLANS FOR CLUSTER COMMERCIAL AREAS; (2) CONTINUE � PHYSICAL IMPROVEMENT PROGRAMS TO REINFORCE IDENTITIES WHICH ATTRACT CUSTOMERS; (3) CONTINUING EFFORTS TO ENCOURAGE SMALL BUSINESS; AND (4) PROVIDING ASSISTANCE TO � SECURE BUSINESS LOANS AND IMPROVEMENTS. 47 � � � FIGURE 4.2-1 COMMERCIAL OPPORTUNITY AREAS � � � �aA��,E� a,,..:. „� � ----- T � �., �,E .. .. F� � � q d�` k�;:�: � F� �1� � � '....+.{-` . %__"'2 rJ.irvc;ra+ w�E auW� ', � I\ ¢ . . E �RrGttl+ I � � n:S1Wav � o �` wr+fEl�f* b � � �.. ' '�' P^ F ;y :•: t 1YE � i cow Y � n.a� ur � E 9! } :,�e,�: I "��`, 1�:. _'_ . �v 3 � : ' MMVlI1U �VE H� �� - `M' '/ :'•' : 1 `�Ti •�4! �� / 1 �MNI tii. "• � r �• 1 1. `y vE�%:E � [Wi�E9 �•�: �'�' WF .,{ n � y�l'A5E Si � i � � R(HilE � ��: � �� :Y•,fn 2 .... � f r �aUKll�i��ry,tJ :('RYh�t Ti •; - N �;:• . yr. E �in 5� � , M,q` 3 :�, � .:nuAk 'u, O:�::�•• {:•J.:•. NNU AvE E ;;•St pIF S ¢ "�'�•• bt+IE1WM IN 3 � �l � � N!�� •:P�NN n 5 • L;-� �� r � E 6m ST \ •'! � ?•.I y• f:�� ~:!j•: 2� E .10 ST � y i � i• .:i/ / Y ti•}�}.�r .....:::1: ...... • � ,� W � • •' ••�••••• -9e ' ��///� �� 3 rrwv.u� wE �s ar+s iu[ �` ...... � .... ..... 1 •.•.• ;.��er• s�w J.•{lff:•: , qG � t '�5a � L \ �£A � (p ' Yi�}.. ...� . .;{.•.:`•�N.i:•: ...i::...... ... � � E "EH �. %. �: �� `vRM i :JF �� / :J . n � ��i � ..... ... .:y�1::: }:�F:•:..ii4 :. �.�ti. `� M1p 3=Y ,' � � nr. ._" ' � " � g �� '�� "� t� ;, �,� i n.F E � S %� � � . �: S �, p � I R�� WF G �� __i �/ m? 1 �� T �, � � , �.J Yt'.0 `1.'a4 . �� .u.�:> �ro,�, , A�«x�. .�.E � � a � s, ° r� s � � �' � — w $ - �'� � '� � �, W ; 1 'p�� I'—+�X � � .i . J�I\I. . 'Y y ` � i � � •�{ � � � � � { �••:• f. '� \ .1 1� ( �``' \T � nW Ii�wr¢ I 1)••• /� i i'h I'- �[ wau':Ka � R[WV C � � � /�_'.�' '�_�'_' . . 1. . ry � /. � \�. � � �J , ,I; � �� D y EQ" '.uY+�N�n� �,vE ,\, '' 1�, -� ,!�� E� N � � ,\ ,; � , rf 1 � �,� �, ' : `.I\� •.G�'�' �y •� , �� ' � ., � _3 I �'�.1 1 l•=Y"' � '.�\: ` 1 � / � . � � �� :Y �f .. ' , _. .,":Py' . 1� 1 � � �I �+i_.,rC:_'��. �=� L�lWN7UWtJ � ��.�� h1IXEU 115� CLUSTEFiS � i:;�::::::;;<:;::::r;:::::��:�c::3 f;:::>::::�:r:;:::::::<:::::>:::: M Y X E U USE ST'R I PS � � IJc1GHBORHUUD CENI'Ek5 � � _� ; � � � � Mixed Use Stri s St. au s commercial strips developed along the trolley lines established in the late 1800s. They have always con- � tained a mixture of uses from housing to office, commer- cial or even light industrial uses. As retail marketing methods have changed the corrmercial activity on some mixed use strips has �declined. On others it is growing. � The strips function best when they retain a mix of uses-- - retail , general commercial , office and residential . The � initial attraction for all of these uses was the close access to transportation. The same is true today. In some cases the mixing of uses on the strips has been � . haphazard causing conflicts between adjoining uses. To be successful , mixing of uses should be intentionally planned. City regulatory controls and fiscal incentives should be � aimed toward achieving a compatible mix of activities. At the same time the available corrgne�cial land should be � maintained. The city's commercial strips still provide a major portion of the city's commercial activities (40 to 57q of dollar sales in 1972). They remain a major source for commercial space, both retail and service, to meet � neighborhood needs. Intensifying existing retail uses, encouraging new business uses and providing opportunities for housing can help to provide a healthy image for all of � St. Paul 's commercial strips. A major opportunity is available for the development of � new housing in strip corrYnercial areas. Many older commer- cial structures were built with apartments on the upper floors. On several commercial strips in the city, hous- ing and comnerce have existed side-by-side for years. � The provision of housing in commercial areas is , there- fore, not infeasible. A number of commercial structures have been converted to condominiums or rental apartments. Housing could also be provided on available vacant sites. � Bringing residents into a strip corrnnercial area, like cluster areas, creates an added market which can improve � the viability of the retaining businesses and can sub- stantially improve the condition of such an area by spur- ring reinvestment. � In some cases the strips provide low-rent opportunities for new businesses to start--"incubator space". Many vacant retail structures are being taken over for use in non- � retail commercial activities. These consist primarily of services, such as insurance sales, accounting, beauty treatments, app1iance repair, mortuaries, pet hospitals and similar uses. This type of reuse should be encouraged. � � 49 � � Lower rents have also enabled some rather marginal � businesses to survive. The result, in some cases, hoa�- ever, has been poor maintenance and upkeep of buildings and grounds, creating a poor identity for adjacent � businesses and the strip as a whole. Some structures are no longer occupied at all . These buildings and/or the land they occupy represent a valuable resource; they � should be considered opportunities for alternate use. Some light industry activities, such as electronic parts assembly, may also fiit well into the commercial strips. , Performance standards should be �Aveloped to control traffic, noise, fumes, and other effects, that would be inappropriate to mixed residential-cor�nercial areas. � � As existing comriercial strips redevelop with mixed usess ' conflicts may arise between new development seeking to � expand the area or depth of the strip and adjacent r�esi- dents who wish to maintain the boundaries of exclusive residential neighborhoods. More site-specific planning for the stri�s will be needed to identify the locations � and conditior�s under vrhich expansion is appropriate. District Counci1s and Local Development Corporations should be directly involved in these plans. � POLICY 4.2-2: THE CITY WILL ENCOURAUE THE DEVELOPMENT OF COMPATIBLE � MIXED USES ALONG EXISTING COMMERCIAL STRIPS BY: (1 ) DEVELOPING SPECIFIC LAND USE PLANS; (2) DEVELUPING DESIGN AND PERFORMANCE CONTROLS; (3) CONTINUING TECHNICA! AND Fj�NANCIAL ASSISTANCE TO SMALL BUSINESSES; AND (4) � MODIFYING CURRENT LAND USE REGULATORY PROVISIONS TU PERMIT APPROPRIATE FLEXIBILITY IN 7"HE REUSE OF LANU AtJU S7RtJCTURES� � Nei hborhood Cent�rs e city s existing neighbornood commercial center�s ou�-• side of the strips, are ader�uate in size to meet tt�eir• � loca1 neighborhood conmercial service needs. These ar•eas were developed to serve a population substantially larger than current�ly resides iri St. Paul . N large portion of � the attritio►� among the city's businesses can be accounted for by population losses. These areas in most areas cori- tain adequate space for expansion of exisi;ing businesses. � Business improvements in existing space should be encouraged. However, expansion of corrrnercially zoned larid in ne�ghborhood centers is not necessary. , �NULICY �+.�-,;: THE CITY WILL DISCOURAGE EXPANSION OF CUMMERCIALLY ZUN�U LtiNU IN ITS NEIGH6URHOOU C�MMERCIAI,� CENI'ERS. � � 5 �� B.Monitorin Chan es Corr�nercia tren s and market directions have changed � dramatically in St. Paul since its initial development. They can be expected to change again. In general , St. Paul must remain informed about changes in retailing � practices in order to respond effectively to them. In this way the City can plan to accommodate changes in land use caused by commercial trends. � POLICY 4.2-4: THE CITY WILL CONTINUE TO MONITOR COMMERCIAL TRENDS AND ADJUST ITS LAND USE POLICIES TO REP1AIN ABREAST OF CHANGES � AFFECTING THE CHARACTER OF COPIMERCIAL AREAS AND ADJACENT NEIGHBORHOODS. Zoning processes must also be monitored to maintain an up- � to-date ordinance that reflects commercial needs. The amouRt of land available for comnercial use is controlled by zoning. Zoning also regulates the placement of parti- � cular businesses at certain locations through the use of different districts. Zoning which is inappropriate, either because of the uses permitted or because of appli- � cation of a certain zone at a certain location, can hurt comnercial devel�pment by precluding appropriate businesses or allowing inappropriate ones. The zoning classifications should provide enough flexibility to be � applied suitably in a number of local situations. POLICY 4.2-5: � THE CITY WILL CONTINUE TO REVIEW ITS PRESENT COMMERCIAL ZONING TO ENSURE THAT: (1 ) EACH ZONING CLASSIFICATION REFLECTS USES APPROPRIATE TO THE INTENDED APPLICATION OF � THAT DISTRICT; AND (2) EACH COMMERCIAL AREA IS APPRO- PRIATELY ZONED FOR ITS INTENDED FUNCTION. C.Desi n and Performance Considerations � W atever the future use of commercia areas, they must be designed and operated in a manner which makes them assets to the community in which they are located. Businesses � which are operated and maintained in a way that is detri- mental to the adjoining uses, especially residential uses, are a nuisance. The City has regulations which are � intende�3 to reduce the potential for a business to become a neighborhood nuisance. � � 51 � � � POLICY 4.z-6: � THE CITY WILL VIGOROUSLY ENFORCE EXISTING ORDINANCES PERTAINING TU LOCATION AND METHODS OF BUSINESS OPERATION. Good design can overcome many of the concerns residents � and shoppers have about a particular business. Many businesses can operate successfully in commercial centers � because their construction and siting remove from sight and sound the unattractive portions of the business. l�he layout of structures, location of parking, landscaping � and general appearance also affect the public's desire tu use a particular commercial service and determine how well the business relates to its surroundings. � Most of St. Naul 's business land is on strips. Houses � , adjoin the corrnnercial land with only a fience or alley between Poor business design has a direct effect on tize value and enjoyment of adjoin�ng houses and the at�rac•• � tiveness of the rieighborhood as a whole. In many of St. Paul 's c�mmercial ar•eas, the local � businesses and the City have addressed the need to improve the appear�ance of the buildings and the publi� right-of-way. In some cases, Local Dev�lopment Co��po!•a-� � tions and the City have made design improvements an inte- gral part of rehab and new business loans. St. Paul 's business areas have a selfish interest in improving theiE� � outward appearances and the City should continue ta support this , PULTGX 4.2-7: � THE CITY, THRUUGH UESIGN CONTROLS, ZONING F�NU I��CEfJTIVt PROGRAMS, WILL ENCUURAGE BUSINESSES T0: (1 ) MAI�dTAI�J 1�HE SCALE OF SURROUNDING DEUELOPMENT; (2) REDUCE TRAFFIC AhU � PARKING PROBLEMS; (3) BUFFER UNSIGHTLY AREAS FROh1 ADJOIIJ- ING RESIUENC�S AND BUSIN"tSSES; AND (4) MAINTAIN ANU IMPROVE THE EXISTING APPEARANCES OF 1�HEIR STRUCTURESo � Ii� many cases , a certai r� use may �e �rohi bi ted i ri a part i�- cular commerciai zone because it is freyuently, but n�t aiways, of ar7 inte►�sity or appearance which makes iic a � problem for surrounding uses. This is often done despite the fact that the use may be appropriate for tnat zor�e in a11 other respects. Instead of such an inflexible � approach, the use o� performance criteria, related to appearance, buffering and landscaping, open space, ��ark•- ir�y, and s� an, wouid be more approNriate. This woui�i � a l�i ow �ve I 1-Ues�i yried bus i nesses iu i ucate i n rnore ues i r•- able locatiur��. � 5� i � � � Performance criteria could also be used to treat reuse of structures more flexibly. New uses in old structures can � cause parking problems, especially if the new use is a restaurant or tavern. Parking requirements in commercial zones may be too restrictive to allow innovative non- commercial use of a structure. Performance standards � would enable the city to solve such problems creatively. - POLICY 4.2-8: � THE CITY WILL TNVESTIGATE THE USE OF PERFORMANCE STAN- DARDS FOR ALLOWING MORE FLEXIBILITY IN THE CONSIDERATION OF PROPOSALS FOR REUSE OF EXISTING STRUCTURES OR THE � INTRODUCTION OF A NEW USE INTO A ZONE WHERE IT WOULD OTHERWISE BE PROHIBITED. _ To ensure that established performance standards are met, � especially if such standards are spelled out in a condi- tional use permit for the particular use, the City should establish a procedure which calls for performance bonding. � Such a procedure would require the developer of the use to guarantee that all the conditions will be met and pledges his credit to complete the required work should he refuse or not be able to do it. In this way the City � assures that its concerns are fully addressed and the use will not be a detriment to its surroundings. � POLICY 4.2-9: THE CITY WILL INVESTIGATE THE ADVISABILITY OF INSTITUTING A PERFORMANCE BONDING PROCEDURE TO GUARANTEE COMPLIANCE � WITH PERFORMANCE STANDARDS FOR COMMERCIAL AREAS IN ST. PAUL. � � � � � � 53 � � � 4.3 INDUSTRIAL LAND USES OBJECTIVE: � TO INCREASE THE VITALITY AND JOB PRODUCING CAPACITY OF ST. PAUL'S INDUSTRIAL SECTOR BY t�1AINTAINING THE CITY' S SUPPLY OF INDUSTRIAL LAND AND USING IT MORE EFFICIENTLY. � Even though employment in St. I�au1 is shifting increasingly to the service and office-oriented sectors of the � economy, maintaining the vitality of the city's indus- trial areas is still important to the supply of jobs and the tax base: Many of the routine decisions made by the cit can either � Y faci1itate or hamper industrial development. Fortunately, St. I'aul has a diversified industrial sector, with many � different types of industry located here. The city offers a number of advantages to industries, including a skil1ed, hard-w�rking labor force, excellent rail and � highway access, and a corr�nitment to further economic development. However, other land uses--especially r�esi- dential and commercial uses--will require most of the remaining vacant land in the city. Uf course, sites � unique1y suited to industrial use--those with rail or barge access and favorable topography, for example--wiil be r�eserved for industry. In general , however, mainte- � • nance of St. Paul 's industrial sector will depend on mur�e efficient use of existing industrial land and structures, as we11 as consideration of some less traditional ways of � �locating industrial uses in proximity to other activities. 4.3.1 .DEMAND FOR INDUSTRIAL LAND ~ ^� , 1'he Minnesota Uepartment of Economic Security estimated that in 1978, total employment in St. Paul was 183,ODU. Unly 21% or 38,000 of these jobs occurred in the tradi- � tional "industrial" sector, manufacturing. 7he over- whelming majority of jobs existed in the non-manufactur�- ing sectors of the economy, especially in government and � services. In addition, ti�e finance, insurance anc� rea1 estate sectors have grown in St. Paul ovei� the iast fe�r� years arrd are expected to expand further in the next � decade, both national1y and reg��nal �y. liowever, t'rie activities involved in manufacturing, whoiesale trade, communications and utilities , and the contract traues employ over 70,UUU people and make a significant contri- � bution to the economic well-being of St. Paul. These are the sect�rs Lracli ti ona�1 y I ocated i ii Sz. Naul ' � i riau� tr�i:a! area:: � � 54 � � � � Of the more than 1 ,000 industrial establishments in St. Paul , over three-fourths occupy less than one acre. If and when these small-site industries, as well as those � occupying much larger s�ites, grow and need expansion space, they have three options: they can try to expand at their present location; they can look for new sites; or � they can develop auxiliary sites. In the past two decades, most Twin City industrial firms requiring space for expan- ' sion have relocated to the suburbs, where land has been � comparable to those of available St. Paul locations. However, because of increased fuel costs, businesses are now beginning to think twice before meving to more remote � suburban locations. The city can keep these growing firms by developing mechanisms which will help them to find the sites they need in St. Paul . � 4.3.2 THE SUPPLY OF INDUSTRIAL LAND The most important factor in encouraging industry to stay � in St. Paul is the maintenance of an ample supply of good industrial sites. Not only must such sites be kept in use, but new ones should be created where feasible. � POLICY 4.3-1 : THE CITY WILL INVESTIGATE CHANGES IN THE ZONING ORDINANCE AND BUILDING CODE WHICH WILL ENCOURAGE INDUSTRIAL FIRMS , TO ADD TO THE CAPACITIES OF THEIR EXISTING FACILITIES, SUCH AS ADDING STORIES OR BUILDING UNDERGROUND, WITHOUT CAUSING ANY DETRIMENT TO ADJACENT PROPERTIES. � POLICY 4.3-2: THE CITY WILL CONTINUE TO WORK WITH PRIVATE DEVELOPERS � AND- THE ST. PAUL PORT AUTHORITY TO FACILITATE THE MAINTENANCE AND CREATION OF ENERGY-EFFICIENT INDUSTRIAL PARKS. � � � � � � 55 � � Industrial Location and Classification � Generally speaking, industrial locations should be guided so that efficiency will be maximized. Efficiency, to the � firm, means good access to transportation by rail or truck; the availability of an appropriate pool of labor; a high-quality site for construction or alteration; arid � access to needed services , such as water and sewer connec- tions. From the public standpoint, efficiency has several meanings: access to transit for employees to improve energy efficiency; adequate existing public � improvements and services so no additional public expen-- ditures are required; and few or no detrimental effects on other land uses, effects which may take the form af a � reduction in the land available for those uses, creation of nuisances, �r the use of residential streets for heavy � truck traffic. Ir� most cases, these considerations will � direct industrial development into existing industrial areas, but other areas may be appropriate as well . Tlie city can facilitate the location of suitable sites �y keeping informed about sites that are vacant or otherwise � potentially available for industrial development. PULICY 4.3-3: � THE CITY WILL UEVELOP AND MAINTAIN AN INVENTORY OF VACANT SITES AND FACILITIES SUITABLE FOR INDUSTRIAL USE TO MEE7 A VARIETY OF INDUSTRIAL NEEDS. Industries may be grouped using two categories. 1he t first category deals with the nature of the industriai activity to determine whether it is "light" or "heavy". � Light F ndustry generally includes activities such as tlie manufacturiny, processing, assembly, packaging or treat- ment of finished or semi-finished products, from previously prepared materia'Is. The products are usually limited in � size, and the activity is usually non-polluting and nn►�- hazardous. Ir� St. f�aul , light industry also includes warehousing and wholesaling activities. Heavy industry � includes activities which ir�volve large-scale operations, operations that generate smoke, odors, noise, and%ur hazards, and operatinris that manufiacture or process r�aw � or prepared materials into semi-finished products. The second category for classifying industries indicates the relative amount of employment afforded by them. ' �ecause additional industrial land is so scarce, both � existiny and new sites must be used more in�ensiveiy su that the lanc� is used to its gr•eatest potential arici � growth i n emp l oymertt can occur. However•, not a1�i i ncius-- trial uses emp1�y iarge numbers of work�rs. Sorne use�.: � 56 � � � � FIGURE 4.3-1 INDUSTRIAL POLICY MAP � ��,�,M ,� „� ----- � : --=-- �., .,E > ��, � � � • •1 ni��NGiW�M (� �� E M1N010N A£ 1: W \ C:�:� ' t :;}:1 �}::ti'+:' Wn e � 1 .� " MWWr � �, wnE[� ':•::•`', z � E rvv at . 7 � i � �y i . _ � � i � usu Mnanaw� ��.��:i,;. ,g� r.v�m�wo ,vt � ,• ___ � :{:} m� � � �, � i c � { < � °jt� 1$:jJ rn ., ! ! . �� ;i.,.,, .wer s.. !:: :: .�. •�., y :. �,," � �� { C 9E $L 1LLVMif�:-J�{,FI - � �•�Y•:'t,• :•.. Y !F '��"�"'�•' e �m sr � :? :.i` :� � .s.cunoix. 5 .::�:..,.. � � � � � � 1 l� �+ , .... ��ua ...: . . .. _ . ::: w .:.. ......:Y :....... ` ••t !•��' ••. E BM ST �7' 1�.- ..':� N � r :;✓� � y . � � VW£R9Tr a �' E }d Sr � � ' • � N '�p ''4:...�.�::..?1 � � -e� �_a `` g � wrr�x� +[ ;;•,"�OS aws wc 1 , . �,�( y� sEiev .ve .;;t%:•'}" --\_ aro . '� .U` � ' �._\ W�' S � ('Fq � � : C'��.�.;� 1 � � �� .�� .�, aE � 1 ��. �. � , ../ S� �, �� , � ; .� � � a � ' .� ,� � � �`S � f` . ''��.� \', e ° � � � ! , � � ♦ .. �`1 \ e�•� i. � JEiFEP.vcY� wE /� L nH(.E CQ�_ •• I s' �pwE�� 1 ' �� '- ��.N�A� � � �� s r ! � �, ,� � �� W N ,� � � � : � ; a 3 � � ¢ �' • /•ti�p�'/� �a � ly i� r # � � � � �a � � ' i � '_ � - � � � �� -� y � � �i � u�i�; �_._�____ w a5�r i G �e uRxra�s \ Ir..� � K � ruo LL q � \ rwwi � � R Q � � v 4 � �; � / . I �� Ed J 1 \`'� I� N� � � `s ,.,�:��. � R '�� ` , � _;i E � • •�:.... , ��.�,� � . y � 4 eucae.et ao .'�' 3 !� 1.\ \�� /L :r �� '''� ; � r�_j `��.! �'`�'`, ' ,/ ��\ ; _ a� � �.�,� Q,,z �; � A�t�� : � �`��. ' � //,, .,:� � _ ��;,,�='.-.-_ �� LABOR-EXTENSIVE LIGHT INDUSTRY � -\�� ; l� i�'� �C_._ . .� , �� LABOR-EXTENSIVE HEAVY INDUSTRY �� ,�„E, r z;. �-�7 � ::;:: LABOR-INTENSIVE LIGHT I��DUSTRY � . .'.........�.."�. LAR�P,-IFaTEMSIVE HFAVY INDUSTRY � MIXED USE AREAS APPROPIATE FOR INDUSTRY 1 . Chestnut-Eagle Street Area � 2. Harriet Island 3. West Seventh Street Tank Farm • 4. Energy Park � 5. University Ave (industrial-related corrunerc i al) 6. Northport (airport-related industrial/ comnercial � � 57 � � � notably warehousing, are labor-extensive--that is, they � use large parcels of land but employ small numbers af peop1e. Such uses are said to have a low jobs-per-acre ratio and do not utilize industrial land most efficiently. � To maximize employment opportunities and land utili2ation in St. Paul , labor-intensive industries--with high-jobs- per-acre ratios--should be encouraged to locate or stay � in the city. This encouragement could take the form of . tax incentives, preferential grant and loan consideration, or other fiscal and non-fiscal inducements used alone or in combination. Further investigation of these techniques � is required. Not all warehousing or other labor-extensive activities � . - should be discouraged, however. In some cases, these activities are essential to support other, more intensive ' industrial uses. The city should not be inflexible ir� � its approach to industrial growth sectors. POLICY 4.3-4: IN THE EVALUATION OF PROPOSALS FOR INDUSTRIAL DEVELOFhiENT, � THE CITY WILL USE THE CLASSIFICATION SYSTEM AND LOCATIONS INDICATED ON THE INDUSTRIAL POLICY MAP (FTGURE 4.3-1 ) AS A GUIDE. � POLICY 4.3-5: THE CITY WILL INVESTIGATE ZONING PROVISIONS AND FISCAL � AND NON-FISCAL INCENTIVES WHICH CAN BE USED TO ENCOURAGE LABOR-INTENSIVE INDUSTRY TO LOCATE IN ST.. PAUL. PULICY 4..3-6: � THE Cr`fY WILL SUPPORT DEVELOPMENT OF LESS INTENSIVE INDUS- TRIAL ACTIVITIES ONLY WHEN SUCH ACTIVITIES ARE NECESSARY ADJUNCTS OF INTENSIVE INDUSTRIAL PURSUITS. ' Reuse ofi Obsolete lndustrial Facilities Tec no ogica innovation as create whole new industries � in the last few years, especially in the fields of elec- tronics and computer technology. A combination of innovation ar�d economic change has rendered other in�ius-- tries or their processes and facilities obsolets. 1"ou � often the structures and, therefore, the properties of firms which have moved or no longer exist remain vacant because of a lack of ideas about what do do with them. � This situation essentially decreases the supply of indus- trial land. 1�he city can aid in avoiding this problem by developing plans for the reuse of such sites, especially � where groups ufi them exist. � 58 � � � � �One scheme for the recycling of such sites is to provide "incubator" space for new firms. Very often these firms � start out with one or two people, a telephone, and a small workspace. Inexpensive accorimodations of this type are difficult to find. St. Paul has the opportunity, therefore, to aid and encourage entrepreneurship by � creating space for fledgling firms. POLICY 4.3-7: � THE CITY WILL WORK WITH PROPERTY OWNERS TO DEVELOP SITE REUSE PLANS AND DESIGNS, AND WILL DEVELOP AND USE INCEN- TIVES TO ENCOURAGE REUSE OF STRUCTURES AND LAND, ESPE- � CIALLY FOR USE AS INCUBATOR SPACE FOR NEW INDUSTRIAL FIRMS. Industrial Clusterin and Mixed Uses � Because the future of St. Paul is ependent on expanded residential opportunities as well as employment-generating comnercial and industr7al development, conflicts of � demand for land will inevitably arise. One means of dealing with this kind of conflict is to use the same parcel for a combination of uses, or clustering. Indus- � trial uses may be grouped intensively with each other and with industrial support activities such as some commer- cial uses. This technique can increase the overall jobs- per-acre ratio and allow firms to share resources such as � fuel , buildings, labor, and transit, thus improving both employment and energy efficiency. Provided that the development is carefu1ly designed, industrial uses may � also be clustered with complementary housing and retail uses (Figure 4.3-1). � POLICY 4.3-8: THE CITY WILL MODIFY THE PROVISIONS OF THE ZONING ORDINANCE RELATED TO INDUSTRIAL DEVELOPMENT TO ALLOW MORE FLEXIBILITY IN THE GROUPING OF INDUSTRIAL USES AND TO � ALLOW THE MIXING WITH RESIDENTIAL AND/OR COMMERCIAL USES WHERE APPROPRIATE. � � � � 59 � � � U tions for Lacation of Clean Industr � raditiona lan use planning emphasized the separatioi� of industrial areas from residential areas, but as more � and more light, clean industry has come into existence, many of the traditional reasons for separation have ceased to exist. With proper controls, certain light industries can make gbod neighbors to residences. For � example, Control Data built a warehouse and office cumplex on a site next to the freeway in the Summit- University area. They draw immediate access fi rom the � freeway and impose no major noise or traffic problems on the surrounding neighborhood. Even outside the framework of a cluster area, where the site design and uses are � , closely controlled, there is an opportunity for greater• latitude in the location of clean industry. POLICY 4.3-y: � THE CITY WILL INVESTIGATE A WIDER RANGE OF OPTIONS FOft THE LOCATION OF LIGHT INDUSTRY, BASED ON THE USE OF INUUS- TRIAL PERFORMANCE STANDARDS, � Industrial Nuisances � At t e citywi e evel , there is a strong constituency in support of industrial development and the creation of �obs. But at the neighborhood level , there is often � opposition to the development of industry nearby. This is partly due to concerns about truck traffic and genera1 air and noise �ollution, but is also related to mor•e localxzed concerns: outdoor storage, noise from machinery � and loading docks, dust, odors, vibration, unattractive exterior appearance, and so on. Tf the city is to seek a wider range of options for the location of even liyht , industry, it must be ready to address those concerris. POLICY 4.3-1U: � 1�HE CITY WILL REQUIRE, THROUGH ZONING AND SITE REVI�W PRACTICES, THE SEPARATION AP�D BUFFERING OF THOSE TNDUS- TRIES WHICH MAY ADVERSELY IMPACT ADJACENT ACTIVITIES. � � � � 6C) � � � � 4.4 RECREATION ND BJECTIVE: OPEN SPACE LAND TO PROVIDE SUFFICIENT RECREATION AND OPEN SPACE OPPOR- TUNITIES FOR ST. PAUL RESIDENTS. jSt. Paul offers a wide variety of open space and recrea- tional experiences. The city's greatest natural asset, the Mississippi River, provides a very special regional � resource. In addition, St. Paul has three other regi�onal parks : Phalen, Como and Battle Creek. In combination, these regional recreational areas provide a truly remark- � able resource for a large city. St. Paul also has a net- work of citywide recreational facilities including pools, athletic fields and parks. Finally, there exists a � system of neighborhood parks and recreation centers. 4.4.1 RECREATION AND OPEN SPACE D AND � The heightened interest in recreational activities and the increase in leisure time to pursue such activities are causing additional demand for recreational services � and facilities. This increased demand is expected to continue in the 1980s and be shaped by several trends: � - The baby boom generation is creating increased demands for adult recreation programs and facilities, such as athletic fields, tennis courts , trails for jogging, � bicycling and cross bountry skiing, and regulation-size gymnasiums. - Increasing energy costs generate demands for recrea- � tional opportunities close to home. This factor accen- tuates the importance of neighborhood parks and recrea- tion centers. ' - The number of children may continue to decline as a percentage of the city's population, but begin to increase significantly by 1990 as the post-tdorld War II � generation becomes parents. - An increased emphasis on girl 's athletics in schools , and on women's athletics in general is causing in- creased use of public athletic facilities. � Lack of available land and limited financial resources will reduce the city's ability to expand park space to • meet shifts in demand. New recreational needs will be met more by modifying use of existing land and facilities, � than by acquisition and construction of new facilities. Balancing recreational demands with limited land and financial resources is the basic issue for the 1980s. � ' 61 � � 4.4. MEETING RECREATION NEEDS � A.Maintainin and U radin Existin Facilities The Par s and Recreation Plan describes t e existing � supply of parks and recreation facilities and makes recommendations for improvements or expansion of the system. The general concept of the plan is that the city shou'Id maintain and upgrade the existing recreational � faci1ities rather than acquiring new parkland. POLICY 4.4-'I : ' THE CITY WILL ACQUIRE NEW PARK LAND ACCORDING TO THESE PRIORITIES: 1.LOOK FOR DESIRABI.E F�ARCELS IN MAJOR UNSERVED AREAS AS � DEFINED BY THE PARKS AND RECREATION PLAN. MONITOR UNDERSERVED NEIGHBORHOODS' LAND TRANSACTIONS FOR • APPROPRIATE SITES; 2.ACCEPT GIF7S OF SUITABLE LANU; � 3.PREFER PURCHASE OF VACANT PARCELS OVER PURCHASE OF DEVELOPED PARCELS FOR NEW PARK LAND; AND 4.SELL UNDESIRABLE PUBLICLY OWNED LAND AS SURPLUS AND � USE THE PROCEEDS FOR PURCHASE OF MORE DESIRABLE PARK LANDS. PULICY 4.4-2: , WHERE POSSIBLE, THE CITY WILL ENTER INTO JOINT USE AGREE- MENTS WITH THE SCHOOL DISTRICT, ADJACENT MUPdICIPALITIES, COUNTIES AND OTHER APPROPRIATE JURISDICTIONS FOR THE � PURPOSE OF SHARING RECREATIONAL FACILITIES AND COS7S. B.�frai'Is � n� e o�sportunity the city does have io proride additiona'i open space given limited land resources is through development of recreational trails. Many recreat.ional activities involve linear movement, such as jogging, r bicycling, a►id cross-country skiing. A trail system, ideally, si�ould focus on city parks and link into a regiona'1 trail system. Uver the long range, the city's � goal should be ta develop a system of trails which serve both recreational and transportation purposes. The trai �! system can use the natural open space that remains in the � city (bluff, ravines , and natural drainage corridors) , a�t the same time protecting it from fiuture development; or it can use other linear land, such as abandoned railroaci rights-ot'-way. Existing parks, as well as natura1 � features , w�ill be made more accessible to the residents by tne trail system. � � 62 , ' � � - � St. Paul has benefited from one form of linear open space, the parkway. Linear open space activities can follow � local streets as well as existing parkways where land acquisition is impossible. Other existing elements of a linear park system in public ownership are a few bicycle � trails, more than half of the Mississippi River shore- lines in the city, the lakeshores of Como, Phalen, and . Beaver Lakes, and a number of scenic bluffs. The city's P1an for Bicycles and the Parks and Recreation Plan � identify corridors for linear recreational use (Figure 4.4-1 ). The city should study these elements and see what can be � done to develop a unified trail system. The system should include some long, continuous routes that bridge barriers and bypass congested traffic. To the extent feasible, the system should be continuous along the river � bluffs. The system should also include shorter, circular trails that provide self-contained recreational opportunities and link parks with other points of anterest � and activity. Although creation of a complete system of trails � is not financially feasible for the city at this time, land for the system should be acquired as it becomes available. As rail lines are abandoned or redevelopment creates � , vacant land, the opportunity should be taken to obtain land for linear parks before the land is redeveloped and extending the system at that location becomes impossible. � POLICY 4.4-3: THE CITY SHOULD DEVELOP A LINEAR TRAIL SYSTEM AS SUGGESTED IN FIGURE 4.4-1 . FURTHER STUDY SHOULD 6E GIVEN TO ADDI- . � TIONAL SHORTER OR CIRCULAR LINKS IN THE SYSTEM. POLICY 4.4-4: � IN THE PROCESS OF DEVELOPING A FULL TRAIL SYSTEM, THE CITY WILL GIVE FIRST PRIORITY TO IMPROVING THE EXISTING PARKWAY SYSTEM, SECOND PRIORITY TO ACQUIRING SEGMENTS WHEN OPPORTUNITIES ARISE, AND THIRD PRIORITY TO DEVELOP- � MENT OF THOSE NEW SEGMENTS. POLICY 4.4-5: � THE CITY WILL GIVE SPECIAL CONSIDERATION TO PRESERVING EXISTING LINEAR RIGHTS-OF-WAY SUCH AS ABANDONED RAILROAD � LINES WHICH MAY BE CONVERTED TO RECREATIONAL USE. ' � � 63 � � FIGURE 4.4-1 LINEAR PARK SYSTEMI � �,�N�E�� ,.;:,;., v �.. "�^f� �• : ' .""__ 3 4,k Q�,{ �J � .�r:•'�f:'.: c'� K,` �y{��.••• 1 � MR4.k�l!JN NE. i �`t�, i � �f;;: � v ,':• �nrnwc:ru� �uc h �ti%:ti w :•. c f5 - � r,.�:ti�. I '� �� //�� n+ov+�r � vn�e�. � w � f�'::; �.� c �� I (;()hV v�.µV avC � � :ti{•. ��MNfNLNA IVE a � M� �t .� :. � , � ::r�::�::. 3 �::�: , , ; �: � �° � 43 �� , .� ! � .� � �� y - �asE s, a ,�s+ �� I�... � FlLNCF BUr�f9 � � � .•S,� � U � .1M1ltW.EV;{�gJ i ` S�' r VIWIf a� ry � i� E tIn G! � ��ra';;Poq� y � 5 .SrtA�xNiC . +w� ■ �n-F.�S' d �.wEHau�C a�[ � �e Si PJV S s �.v+E�Wa Af g '. � „F ! 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MAJOR OPEN SPACES •:�. 1 � •�;:y;, .�,`R":;r' ......v.....ti�'?' �•� � � ' ''%% .�;:%'::':•,••�-� .'.`. A. Como Park =�• , :.::. .. .. .... ... ... '`�'��'�`.'•`'r'� B. Fhalen Nark � � ;;;;�.:' ��;:?�;��.�, C. Battle Creek/Indian Mounds Park ---�---- ' ::;:=��::;:;:i;::s D. Pig's Eye Regional Park ►� .�..:��:;'�:�:i�::;•,':3;;�:;: E. Capitol Approath N' ,�., �.., �, ,�� F. harriet Island '�--'��i''� ....f.Jf::.f:X:�:J.Y::� M�iF. G. Lilydale kegional Park il. Crosby Farm Floodplain Park � I. Fort Snelling State Hist. Park J. Hidden Falls Park �� EXISTIN6 PARKWArS al��ufnn�■ PROPOSED LINEAk PARK CORRIDURS � 1. Link U of M St. Paul Campus, St. Anthony Park and Como Park to the Niver. 2. Complete path around Lake Como and from Como Park to the Capitol 3. Create northerly trail to Downtown. � 4. Build East Como Blvd. as a parkway (alo�g railroad right-of-way) 5. Complete southeast parkway to city limits. 6. Connect Warner Rd. to Pig's Eye and Battle Creek Regional Parks. 7. Form a continuous linear park along or below the bluff lines tu � connect: (a) Mounus Bivd. to the Capitol Approach, and (b) the Cathedrul tu Edgcumbe Rd., using land cleared for I-3tiE. II. Connect East Como Blvd. to Shepard Rd. and Downtown. 9. Cunnect the Capitol to Town Square/7th Place. � 10. Cunnect the Cathec!r•al to Hanm Square. 11. Connect Harriet Island to Cherokee Pkwy. 1? runnect Edgcumbe Rd, to Mississippi River Nlvd. 64 t � � � 4.5 INS ITUTIONAL L DS OBJEC IVE: TO RETAIN ST. PAUL'S INSTITUTIONAL LAND USES AND THE � SERVICES TNEY PROVIDE AMID COMPETING NEEDS FOR LAND. .5. HE DE AND R INS ITU IONAL S ACE H S SHI E � Institutional land uses are a significant canponent of total land use in St. Paul. In 1974, public and semi- " public land uses totaled 14.2� of the city's acreage. � Although they pay no property taxes, institutions employ many St. Paul citizens and provide a wide variety of important services and facilities. Most institutional � uses are either governmental (offices, libraries, and fire and police stations) or non-profit agencies such as churches, private schools and colleges, or private lodges. � Znstitutional land uses play important cohesive functions; the social , governmental and educational fabric of the city is supported by them. Some institutional buildings � such as churches are important landmarks and help to give a sense of identity to an area or to the city as a whole. Many institutions also provide a visual break in the city- � scape; for example, school campuses, golf courses and c�meteries provide open space. The city would not be ab1e to provide today the same element of open space that these institutions give to the city. While not totally � open to public use, semi-public lands provide at the least great visual relief and attractiveness to many St. Paul neighborhoods. � Institutional land demand is a factor of the population's demand for services and specialized spaces. Many insti- tut�ons that exist in St. Paul are products of historic � growth patterns. Institutions were placed throughout the city to meet demands for services. Fire stations, libraries, and schools were located where needs developed � because of the new housing construction. The larger churches and schools also provided a break in the urban fabric. Some institutions, like the colleges, developed � in the countryside but were quickly absorbed by spreading urban development between the Twin Cities. They became open space enclaves in the newly developed neighborhoods of the 1900s and provided services for the growing urban � population. The large number of semi-public institutions, , churches, social halls, clubs and schools, were supported by a larger, more dense population than now resides in � �he city. These institutions serve a large population, but draw from all over the metropolitan area. � � 65 � ` �� Now these demands are shifting. This is�especially � evident with pub1ic schools, whi�h cannot replace local users with others from outside the city. The public � schools are closing. Vacant l�nd parcels are created in neighborhoods and resources are lost. The same is true, tn a lesser extent, with the private schools in the city. Tn other cases, institutions servirig metropolitan needs � are expanding, sometimes to the detriment of the adjacent residential comnunity. These changes in demand can � conflict with other needs for space, especially residen- tial space. . .2 M NAGING THE GROWTH � . OR SHIFT IN INSTITUTIONAL LANUS The city has four interests in institutional land supply. � It needs to: (1 ) control expansion which would nega- tively affect more important land uses; (2) manage changes in institutional land to assure appropriate reuse; � (3) maintain the open space and other amenities that institutions �rovide the city; and (4) encourage insti- tutional location ir� clusters to improve the mix of uses availab1e there. � � A.Expansion of Institutional Land Uses Uespite tne obvious benetits derived trom existing insti- � tutions, i� must be kept in mind that land is very scarce in St. Paul . Since the primary needs of the city relate to residential opportunity and economic development, what � little Tand is available must be devoted to residential , commercia1 and industrial uses. Loss of land which is or could be used for those purposes must necessarily be limited if the city's yoals are to be met. � POLICY 4.5-1 : THROUGH ZUNING �1NU BUILUING PERMIT PROCESSES, THE CITY � 4�ILL DISCOURAGE THE EXPANSION OF INSTITUTIONAL USES INTU LAND BEING USEU FOR RESIDENTIAL, COMMERCTAL OR INDUSTRIAi. PURPOSES. ' � When many of the city's institutions were built, they were isolated in re�atively undeveloped areas of the city. Today, these institutions are surrounded and hemned in by � other land uses. In some cases, conflicts related to use, such as traffic congestion, danger to pedestrians and parking problems, have arisen between the institution � involved and the surrounding neighborhoud. � 66 ' i � � POLICY 4.5-2: THE CITY WILL WORK WITH THE DISTRICT COUNCILS AND INSTI- TUTIONS TO RESOLVE LAND USE CONFLICTS ARISING FROM THE � COMPETING NEEDS OF THE INSTITUTIONS AND THEIR NEIGHBORS. B.�1anaging Reuse � Because so muc of the city's land is in institutional use, it is important that options be made available for - reuse of such lands when an institution decides to close � or relocate. School closings, hospital consolidations, and other actions mean that large parcels of land are available for redevelopment or reuse. In other situa- tions, smaller parcels and buildings may remain after � vacation by neighborhood churches or clubs. In some cases, remaining buildings may be suited .for a � number of uses, but at present the St. Paul Zoning Ordinance allows very little latitude. For example, the offices of a public service organization cannot move into � a vacated church in a residential area because offices are not allowed in residential districts; it does not matter that the offices would have the same or even less impact on the surrounding residences. In other cases, the build- � �ng may be adaptable for use as housing, but the site as a whole lacks certain necessities. If the location is not suitable for housing, another use should be found; � if the site lacks room for parking and amenity open space or if the building is unsuitable for conversion, the building should be removed so a more usable site design can result. � POLICY 4.5-3: THE CITY IN CONJUNCTION WITH THE NEIGHBORHOOD AND DIS- ' TRICT COUNCIL INVOLVED, WILL INVESTIGATE APPROPRIATE REUSES FOR VACATED INSTITUTIONAL BUILDINGS AND LAND GIVING FIRST CONSIDERATION TO PARKS ONLY IF SPECIFICALLY � CALLED FOR IN THE PARKS AND RECREATION PLAN, AND OTHER- WISE GIVING PREFERENC� T RESIDE IAL S R MIXED USE DEVELOPMENTS. � POLICY 4.5-4: THE CITY IJILL DEVELOP AND IMPLEMENT CHANGES IN THE ZONING ORDINANCE WHICH WILL ALLOId MORE FLEXIBILITY IN THE � RECYCLING OF VACATED INSTITUTIONAL LANDS AND BUILDINGS FOR USES APPROPRIATE TO THE SITE AND COMPATIBLE WITH THE SURROUNDING AREA. � POLICY 4.5-5: THE PLANNING COMMISSION SHALL REVIEW AND COMMENT ON PROPOSED REUSE OR DISPOSITION OF ANY PUBLIC PROPERTY � WHICH HAS BECOME SURPLUS. � 67 � � A special case affecting St. Paul , as mentioned earlier, � is the closing of many public and private schools. These closings not only remove an important neighborhood facility, but also important open space. School closing decisions should look beyond irrmediate enrollments and � into the role the school plays in maintaining neighbor- hood identity. Reuse of school sites creates special problems for the � - School Board and the city. Redevelopment of these sites must be in character with the surrounding neighborhood. The city has the resources to assist the School Board in � its analysis of school closings. The effects on surround- jng neighborhoods and potential for new uses should be . jmportant points of any decision affecting a school � closing. POLICY 4.5-6: � THE CITY WILL WORK CLOSELY WITH THE ST. PAUL SCHOOL BOARU TO ASSIST IN EVALUATION OF THE EFFECTS OF SCHOOL CLOSINGS ON NEIGHBORNOODS AND TO DETERMINE THE MOST APPROPRIATE REUSE OF VACANT SCHOOL PROPERTY. , C.Institutions in Clusters rovi ing space in mixed-use clusters can be a way of � meeting new demands for institutional space in the future. Institutiona1 uses have varying degrees of importance to the success of land use clusters. In some instances, the � use should be located well outside the cluster. Otheri uses should be at the very center di the cluster. Alsu, some clusters lack important support services supplied t�y institutional land uses, while others are more well- � equipped. The following list gives some idea of the appropriate 7ocation for institutional uses in different types of clusters • � � � � � 68 � ' � � � - In regional clusters (the Downtown): government and courts; libraries; business, art and vocational schools ; police stations; museums; exhibition halls; concert � halls. - Adjacent to or in mixed use clusters or neighborhood centers; public and parochial schools; colleges ; voca- � tional schools; churches; hospitals; nursing homes; branch libraries; indoor recreational facilities (e.g. , � bowling alleys, swimming pools). , - Away from clusters: cemeteries; public and maintenance facilities ; country clubs; golf courses and playing fields. � POLICY 4.5.-7: IN LOCATING FUTURE INSTITUTIONAL USES, THE CITY WILL SEEK � TO GUIDE APPROPRIATE USES TO LOCATIONS IN PROPER PROXIMITY TO CLUSTERS IDENTIFIED IN THIS PLAN. � D.P1aintainin Institutional 0 en W en institutions expand within their own ground or when a site is vacated and sold for other uses, a valuable open space amenity may be lost. Many parts of the city � depend on semi-public institutions to provide visual relief and recreational space. These are spaces that the city might otherwise have to provide. , POLICY 4.5-$: THROUGH EASEMENTS, JOINT USE AGREEMENTS AND OTHER MEANS OF COOPERATION AND ZONING CONTROLS, THE CITY WILL STRIVE � TO MAINTAIN IMPORTANT OPEN SPACE AMENITIES PROVIDED BY ITS MAJOR INSTITUTIONS< ' � � , � � 69 ' � � . S C IT RE Being the seat of government for the State of Minnesota � has created some unique land use issues for St. Paul . The state and the city have not always had the same objec- � tives with respect to land use in the Capitol area. Conflicts can arise when the owners of existing commer- cial and resjdential uses in this area seek to respond tc� � changing conditions. These business people and residents should be able to make changes to their properties, ` within a framework which enhances rather than detracts from the design and appearance of the State Capitol � Approach. Additional complications arise because both the state and � _ the city exercise land use controls in the vicinity. In 1967 the Governor appointed the Capitol Area Architectural • and Planning Board (CAAPB); its main concern is to preserve the beauty af the Capitol and its environs from � encroachments by other uses. The CAAPB has absolute zoning jurjsdiction in the Capitol area itself, while the city exercises zoning control over the uses adjacent to � this area. Because the CAAPB has final jurisdiction, its role should be broader to deal with the economic and social affects that arise from decisions on the physical � setting for the Capitol . The city, the CAAPB, and the district council need to cooperate in the planning for and use of land and the resolution of any conflicts. POLICY 4.5-9: � THE CITY WILL WORK WITH THE CAPITOL AREA ARCNITECTURAL AND PLANNING BOARD AND THE THOMAS-DALE/DISTRICT 7 PLAN- � NING COUNCIL TO ENHANCE THE PLANNING AP�D DESIGN OF LAND USES IN THE CAPITOL AREA A�VD VICINITY. Construction of I-94 severed the connection between the , Capitol and downtown St. Paul. While clearing the land for the freeway created a stronger and more impressive setting for the Capitol , the ties between downtown and � the Capitol need to be re-established. Improving this link will strengthen the downtown and help relieve pressure for overly intense commercial development near � the Capitol . Actions which could strengthen the link include transit improvements, landscaping and street furniture along connecting streets, and expansion of , state offices toward downtown. POLICY 4.5-10: THE CITY WILL WORK WITH THE CAPITOL AREA ARCHITECTURAL � AND PLANNING BOARD TO DEVELOP A STRONG LINK BETWEEN THE CAPITOL AND DOWNTOWN ST. PAUL. � 70 � � � � 4 TR NS OR I N AND USES OBJ C IVE: TO ENSURE THAT THE CITY'S TRANSPORTATION LANDS ARE USED � AND REUSED IN EFFICIENT, SAFE AND EFFECTIVE WAYS. Lands devoted to transportation in St. Paul--streets, higF�ways, railroad lands, parking areas, and airports-- � occupy over one-fourth of the city's total land area. Because of their extent and pervasiveness, changes in the � use of transportation lands will impact both the overall � supply of 1and and other land uses. , The transportation element of St. Paul 's Comprehensive Plan is comprised of three specialized plans: the Street � _ and Highway Plan, the Transit Plan, and the Bicycle Plan. These plans deal with rrrost of the transportation issues � which the city faces. This section of the Land Use Plan � addresses issues related to the use of railroad proper- ties and airports. � . . NDS The city has strong interests in three railroad-related issues: preserving current operational capability, ensur- � ing that vacated railroad lines are properly reused, and dealing with the impacts of railroad lines on adjacent uses. , A.DEMAND FOR RAILROAD LANDS: Operational Capability vs. Alternative Use � The ability of existing rail lines to provide effective circulation throughout the city must be preserved. To do this, railroad rights-of-way must be protected from non- transportation development. While much rail-related land � may be better suited to other uses, maintenance of continuous routes is essential . The recovery of lost rights-of-way or development of new ones is virtually � impossible in an urban setting. Railroad rights-of-�way are particularly valuable for � alternative transportation uses, such as express bus lanes or light rail transit corridors. Furthermore, rights-of-way can be used as linear parks or recreational trails for bicycling, snowmobiling, or cross-country � skiing. For this reason as well as the one discussed above, reasonable options for the preservation of rail- " road rights-of-way should be investigated and considered �� 71 � � POLICY 4.6-1 : � THE CITY WILL INVESTIGATE ANO IMPLEMENT MECHANISMS TO PROTECT RAILROAD RIGHTS-OF-WAY FROM LOSS TO IMAPPROPRIATE � DEVELOPMENT, INCLUDING ZONING PROVISIONS, USE OF EASE- MENTS, AND THE PROCUREMENT OF RIGHTS OF FIRST REFUSAL FOR RAILROAD LANDS SUBJECT TO ABANDONMENT AND PRIVATE SALE. , B.IMPACTS OF RAILROADS ON ADJACENT USES ` Traditionally, land adjacent to railroad lines has been used for rail-related industry. However, market demand � for prime industrial land has pushed some rail-related businesses out of the city. For example, "trailer-on- flat-car" operations which load semi-truck trailers on � . railroad flat cars for long distance travel , thus enabling trucking firms to save substantial amounts of fuel , have � become a large portion of the railroad freight hauling � business. While this type of labor-extensive use will not usually be encouraged by the city, the continuance of this type of business is vital to the future of the rail- roads and is in keeping with the city's goal of improving � energy efficiency. In other cases, i.e. , the Ford Plant, access to rail is an important factor for labor-intensive uses, too. � POLICY 4.6-2: THE CITY WILL ENCOURAGE, THROUGH ZONING, CAREFUL SITE � REVIEW, AND JUDICIOUS USE OF ITS FISCAL AND NON-FISCAL DEVELOPMENT INCENTIVES, THE USE OF INDUSTRIALLY ZONED LAND AOJACENT TO RAILROADS FOR RAIL-RELATED ACTIVITIES. It should not be assumed that all land adjacent to rail � lines must be used for industrial purposes, especially when other uses may achieve higher densities. Even resi-- � dential uses, when properly designed and buffered, can be located next to rail lines. Many residential areas in St. Paul are bisected by rail lines with little adverse � effect. Conflicts occur, not with the railroads but rather, with rail-related industries. Industrial uses along residential areas would be inappropriate. Since the railroads are a permanent part of the urban environ- � ment, future development must be planned in relation to them. However, existence of the rail line should not preclude non-industrial development. In any situation, � good site planning will be essential. POIICY 4.6-3: THE CITY WILL WORK WITH LOCAL DIS1'RICT COUNCILS TO ESTA- � BLISH SUITABLE USES AND SITE PLANNING CRITERIA FOR NON- INDUSTRIAL. DEVELOPMENT ON PROPERTY ADJACENT TO RAILROADS. , 72 � � � � 4.6.2 AIRPORTS St. Paul has a major interest in maximizing the safety, reliability and efficiency of the airports serving the � city, while minimizing their negative impacts and promot- ing acceptable levels of economic development in surrounding areas. The presence of the Downtown St. Paul , Airport (Holman Field) within the city limits and the close proximity of Minneapolis-St. Paul International - Airport (MSP) at the city's edge provide certain advan- tages and disadvantages. � A.AIRPORT DEMAND Growth in the use of corporate and other private aircraft � requires a better separation of these operations from comnercial aircraft operations. The regivn's major air- port, Minneapolis-St. Paul International is becoming � crowded as commercial , corporate, military, and private aircraft increase operations and compete for space. To address these problems, the Metropolitan Airports Corr�nis- sion (MAC) and the Metropolitan Council have agreed upon � a hierarchy of airports in the region, with the intent of separating the various kinds of air traffic while satisfy- ing demand. Master plans for each airport are presently � being prepared by MAC. Generally, the Master Plans solidify the roles of these , airports in the system: MSP will continue to serve as the Upper Midwest's major airport, accomnodating all national and international comnercial service and significant portions of the regional and subregional traffic. MSP's � future development, procedures, and equipment will be in keeping with this role. � Holman Field is underutilized for the ground area and equipment dedicated to it. Of all the airports in the region, it is the best able to accommodate more use, � providing certain improvements are made. MAC has completed a Master Plan for the airport, calling for advanced equipment and major expansion of its runways and taxiways. These improvements will insure that Holman � Field will remain the region's "Number 2" airport, accorranodating most of the region's corporate air traffic and an increasi�g percentage of other private, recrea- � tional and military traffic. It will also be the main reliever to MSP fior smaller planes in case of emergency closings. � � ?3 � � � POLICY 4.6-4: � THE CITY WILL CONTINUE TO PARTICIPATE IN THE FORMULATION OF THE MASTER PLANS FOR MINNEAPOLIS-ST. PAUL INTERNATION- � AL AND DOWNTOWN ST. PAUL AIRPORTS TO HELP ENSURE THE SAFE, RELIABLE AND EFFICIENT OPERATION OF THESE FACILITIES. B.IMPACTS OF AIRPORT OPERATION , The operations of MSP and Holman Field generate two major issues of interest to St. Paul : excessive aircraft noise, and the impacts of approach path safety on economic � development. Ai rcraft Noi se Both t e Federal and State governments have established � acceptable noise levels for areas surrounding airports, • and have mandated airport and aircraft operational tech- niques to keep noise levels within these limits. � Minnesota's standards are more restrictive than the federal standards. Presently, the MAC is in technical violation of state noise standards in its operation of � both MSP and Holman Field. St. Paul is faced with the necessity of trying to find ways to reduce the noise impacting its residents and to mitigate the adverse impacts of that noise (Figure 4.6-1 ). , Two basic approaches to reduce noise nuisances are avai1able. The first is to divert aircraft tv flight , paths that affect fewer people and to change the number of flights and their hours of operation to make noise less disruptive. Ti�e Preferential Runway Program helps � to minimize disruptive noise for large population groups to diverting the majority of air traffic from aircraft approaches affecting them to approaches over less densely populated areas. It has been successful in minimizing ' noise disruptions. A second way to reduce noise is to generally provide � better noise insulation in structures especially vulner- able to aircraft noise, such as hospitals, nursing homes, schools, residential buildings, and other structures , where sleep, rest or concentration are important daily activities. Local housing programs and building regula- tions can be used to build sound insulation into affected structures, thus maintaining or improving the attractive- � ness of the areas where they are located. Industrial � � 74 � � � � FIGURE 4.6-1 AIRPORT IMPACTS «��,��, aF ------, � "�� - . ---- � � � , " , MiINM:I:M. 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'� -� '�, ,� � � :'��... :.... _. ;.: � ;.`:::�::�::�_�, ;;" ` , � :s�;'"''::�:°.:::, :��:::::::��:� �\ ....::�� _. _ � :::::::�• `�� '1_.' \ .::4�. � ' � �� MSP � '"° . r ____ �.�_::�� GLTDE PATH WITH � L�__—� WITH HEIGHT RESTRICTIONS � NOISE: :.... . .......... L10-65 POLICY CONTOUR* (1990 Proj. ) i �:�_:,::�a:::�,::::�::::�:.:,� ��.,;,��r!!�s:y�:;=;�� L1U-70 POLICY CONTOUR (1990 Proj. ) ` *L10-65 means that a noise level of 65 decibels is exceeded 10% of the time during a one-hour period. (This is a highly simplified explanation ofi a complex system. ) � � ,5 . � � es b n e 1 s di ru d � us , y ature, ar e s s pte by aircraft noise and are the best suited for impacted locations. However, the tolerances of the employees must be respected, and sound � insulation is advisable where acceptable noise levels are exceeded. However, insulation has little effect during warm weather, when windows are frequently open, and where � outdoor activities are prevalent. POLICY 4.6-5: � THE CITY WILL PARTICIPATE IN STATE AND FEDERAL EFFORTS TO ESTABLISH AND ENFORCE ACCEPTABLE AIRCRAFT NOISE STANDARDS IN ST. PAUL. � POLTCY 4•6-6: • THE CITY WILL SUPPORT EFFORTS BY THE METROPOLITAN AIR- � PORTS COMMISSION AND THE COMMERCIAL AIRLINES TO IMPLEMENT NOISE ABATEMENT PROCEDURES, ESPECIALLY THOSE RECOMMENDED BY THE METROPOLITAN AIRCRAFT SOUND ABATEMENT COUNCIL. POLICY 4. 6-7: � THE CITY WILL ENCOURAGE STATE AND FEDERAL EFFORTS TO FUND NOISE-REDUCTION PROGRAMS RELATED TO AIRCRAFT OPERATIONS, � EQUIPMENT AND MAINTENANCE; SOUND INSULATION FOR BUILDINGS IN AFFECTED AREAS, AND MONITORING OF AIRCRAFT NOISE LEVELS. POLICY 4. 6-8: i THE CITY WILL INITIATE INFORMATIONAL AND REGULATORY PROGRAMS TO ENCOURAGE INSULATION OF BUILDINGS VULNERABLE TO AIRCRAFT NOISE. � A roach Path Safe� ere is an o vious public interest in ensuring that air- � craft landings and take-offs are kept away from obstruc- t�ons that would hamper them, as well as from densely populated areas. For these reasons, land use and air space controls are imposed by the Federal Aviation Admin- � istration and the Minnesota Department of Transportation. Generally, controls are most restrictive at the ends of the runway and progressively more lenient moving away � fror� the airport. The areas of St. Paul beneath the established flight � paths of MSP are sufficiently far from the end of the runway to be unaffected by controls on land use. Like- wise, limits on the heights of structures do not affect existing and proposed development in the southwest corner � of the city_ 7 � 6 � � � � This is not the case at Holman Field. Because Holman is close to the center of the city, controls on the types and heights of development under the approach paths � affect substantial amounts of developable land. Con- straints are most important under the northern approaches to the airport, an area which includes Northport and a significant amount of downtown. Other areas affected to , a lesser degree are Riverview Industrial Park and South- port Industrial Park (Figure 4.6-1 ). ' New runway alignment at Holman will affect approximately 400 acres of underutilized railroad, riverfront and indus- trial land north and west of the airport. Given recommen- � ded development controls, intensity of new development permitted in this area is potentially less than the site could accommodate and substantial1y less than what is � envisioned in policies recommended in this plan. The city must strive to achieve a high level of development within the constraints imposed by this new approach path. ' POLICY 4. 6-9: TO ENSURE THE SAFETY OF RESIDENTS AND BUSINESSES NEAR AIRPORTS AND UF THE FLYING PUBLIC, THE CITY WILL WORK WITH ' THE METROPOLITAN AIRPORTS COMMISSION AND RELEVANT STATE AND FEDERAL AGENCIES TO ESTABLISH ACCEPTABLE LAND USE. AND DEVELOPMENT CONTROLS IN THE VICINITIES OF MSP AND � HOLMAN FIELU. POLICY 4.6 10: THE CITY WILL WORK WITH THE METROPOLITAN AIRPORTS ' COMMISSION TO ESTABLISH ACCEPTABLE LAND USES AND DEVELO{'- MEN7 CONTROLS WHICH WILL MAXIMIZE OPPORTUNITIES FOR ANU THE INTENSITY UF NEW DEVELdPMENT IN AREAS POTENTIAL�Y ' AFFf��CTEG 13V AI RPORT �1PFRlITIONS� � , � ' � 77 � 5.0 IMPLEMENTATION � � � This chapter of the Land Use Plan indicates the major � activities necessary to implement its recomnendations. Activities in the plan are divided into five areas: Development, Studies, Programs, Official Controls, and � Intergovernmental Relations. These lists do not include all of the activities that St. Paul now performs to influence land use decisions. It is a listing of the , major activities or policy changes. Continued analysis • of land use demands and the results of implementation of this plan will continue to redirect proposed activities. The activities below are, however, the initial step to , jmp1ementat�on. 5. 1 DEVELOPME T ACTTVITIES In order to imp ement several an use recomnen ations, , . the City must either directly develop facilities, finance their development or assist in their financing from other � sources. The City's Capital Improvement Program and its Annual Capital Allocation Process are the main tools which set priorities for use of the city's limited finan- cial resources. The following is a list of the develop- , ment activities proposed by the Land Use Plan: A.Housing development and financing supportive of � residential section policies. B.Public improvements and incentives in cluster areas. � C.Financial incentives to business development. D. Industrial development and incentives. � E.Bluff easements. F.Linear parks program. ' G.Downtown connection public improvements. � H.Open space easements on institutional land. � � � 78 � � � � � 5.2 STUDIES T ese activities represent studies or plans nee e efore direct action can be taken on a problem. Studies of areas in St. Paul or of the land use needs of particular , activities will normally include steps from information collection and problem identification through proposals for action such as zoning changes or public programs. The following are the major studies proposed in the Land ! Use Plan: A.Cluster subarea studies and plans. � B.District housing plans. � C.City commercial market analysis and subarea plans. D.City water drainage study. � E. Industrial development studies. F.Special zoning studies to review the following: � 1 .Permitting higher-density housing in low-density residentia1 areas; 2.Using performance standards and bonding to control � site design and use; and 3.Controlling reuse or expansion of institutional lands. ' 5. 3 PROGRAMS The city performs a number of activities, on an ongoing basis which implement land use policies. Its existing Zoning Code and Building and Housing Code Enforcement ' programs are the major regulatory activities. In addi- tion, the City has a well developed program to encourage housing, commercial , and industrial development in the � city. This plan does not recommend new programs in St. Paul . Rather, it offers policies to guide the exist- ing programs and it recommends changes in regulations or development practices necessary to implement the Land Use � Plan. In operating these programs the City will consulfi the l�and Use Plan policies and recommendations. � � ' i 79 � ,, � 5.4 OFFICI L C TR cia contro s are t e or .nances an regu at ons t e � city uses to control land use decisions. These include zoning, various financial , design and site plan reviews, and. specialized ordinances and building codes. The tradi- � tional method for cities to influence land use decisions has been through its control mechanisms. The following . are the major changes in controls proposed in the Land � Use Plan: Zoning 4rd�nance changes to: , A.Create a mixed use cluster zone to promote high density mixed use development. ' B.Establish criteria and process to allow higher density � . housing in low-density areas. C.Estab1ish criteria and process to allow conversions of � single fami1y houses �o more than one-unit structures. D.Establish criteria and process to allow residential and � non-commercia_1 uses mixed in comnercial zones. E.Limit expansion of neighborhood and strip comnercial � areas. F.Establish performance standards and bonding for mixed , use areas and comnereial areas. G.Revise industria1 zoning according to classifications in Land Use P1an. ' � H.Establish criteria for flexible reuse of vacated insti- tUtional lands. � I.Establish rail-related industrial zones for industrial land adjacent to railroads. , J.Require soil analysis and corrections before construc- tjon is allowed on potentia1ly poor soils areas. K.Regulate excavation and fill activity in order to � protect poor soils and bluffs. � ' $o i ! � j iL.Establish site plan and design review ordinance to control design and siting of new development or reuse of old d�velopment: , 1 .In designated cluster areas; 2. In low density residential areas; 3. In sites affecting landmarks or historic properties; � 4.In all comnercial areas; 5. In high density housing areas; and . 6. In areas where incompatible uses adjoin residential ' land and require buffering. �5.5 INTERGOVERN EN L is section indicates areas w ere iaison activities � RELA7IONS must continue or recomnendations be made to other agen- cies. , � A.Work with federa7 and state agencies to: 1 . Improve environmental standards and procedures; and 2.Eliminate practices which limit financial assistance , and investment in mixed use developments. B.Support Rarr�ey County acquisition of bluff easements �iri St. Paul . ' C.Work with the Capitol Area Architectural and Planning Board to enhance development in the Capitol area. ' U.Work with the St. Paul School Board to evaluate effects of school clusings and reuse of surplus school sites. ' E.Consult St. Paul Planning Comnission on dispositiori ofi public lands. ' �.Participate in master planning for� Minneapolis-St. Paul and Holmar� 3irfields, ii�cluding n�ise and development 1�;5Ue�. � � � ' � 8� E :� � 5.6 DEPARTMENTAL mp ementat�on of t e Land Use an as tra t�ona y � RESPONSIBILITIES been the responsibility solely of the regulatory sections of city government. Even in this plan major responsi- ' bility remains with the Zoning and Code Enforcement functions of the city. The policies and recomnendations in this plan are, in � many cases, the �oint responsibility of several depart- � ments or divisions. For example, any housing development programs will involve not only the Planning and Code ' Enforcement Divisions, but also the Renewal , Economic Development Divisions, and possibly the Port Authority. Actual assignment of activities will be the result of � . each division or department's annual work program. . � � , , , ' ' � � ' � 82 , � � CREDITS l ' PLAN IN CO om tz i on, airman av anegran Clark Armstead Jeff Levy *Liz Anderson David McDonell ' James Bryan Jane Nelson Carolyn Cochrane *Martha Norton Sam Grais Joseph Pangal , **Rev. Glen Hanggi *Gayle Summers Sister ATberta Huber Janabelle Taylor David Hyduke Adolf Tobler Nelsene Karns Robert Van Hoef ' **Land Use Committee Chair *Land Use Committee Member � . ADMINIST TION AND • ames Be lus, C , amm�g A ministrator ' POLICY DIRECTION Peggy Reichert, Principal Planner Allen Lovejoy, Principal Planner Larry Soderholm, AICP, Principal Planner Craig Kercheval , Principal Planner ' RESE RC D Steve roc a a, , Planner-in-Charge r ' Joyce Levine, AIGP Patricia .�ames Dorothy Schlesselman � William Butz ' , ' ' ' , � �