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265194 WMl7E — CITY CLERK PINK ' — FINANCE C011l'ICll r C�P.NaRYr. DEPARTMENT GITY OF SAINT PAUL F BLUE�MAV�OR File NO. ��1� �� ` �� ncil Resolution . Presented By Referred To Committee: Date Out of Committee By Date WHEREAS, the Capital Area Architectural and Planning Commission on March 4, 1974 presented to the City Council their Proposed Plan for the redevelopment of the Capital Area in the Ci.ty of Saint Paul; and WHEREAS, the Proposed Plan recommends that the State of Minnesota provide necessary funds and appropriations for capital costs and expenditures and the Gity of Saint Paul provide_ necessary funds and appropriations for administrative costs and expenditures; now, therefore, be it RESOLVED, that the City Council approves the concept of the plan prepared by the Capital Area Architectural and Planning Commission presented to the City Council on March 4, 1975; and, be it FURTHER RESOLVED, that the City Council supports the �unding proposal whereby the State of Minnesota provide the necessary funds for capital costs and the City of Saint Paul _.__- -� provide the necessary funds for administrative costs; and be it FURTHER RESOLVED, that the Chairman of the Finance Commi.ttee be and hereby i.s authorized and directed to negotiate a final determination of the sharing of costs on behalf of the City of Sai�nt Paul, subject to final approval of the City Council. COUNCILMEI�T Requested by Department of: Yeas Nays Christensen Hozza .�_ In Favor Levine Rcedler � Against BY Sylvester Tedesco President Hunt M� 1 � �� Form Approved by City Attorney Adopted by Council: Date Certified a s d b Coun ' Secr r BY By Approve by Mavo Date � Approved by Mayor for Submission to Council By By eYBUSH�o 2 2 i�75 . � � ��) q � MEMO�AN�UM CITY OF SAINT P UL � OFFICE OF THE MAY'OR CITY PLANNING DATE: March 10, 1975 DONALD L. SPAID AIP PLANNING COORDINATOR T O: Rose Mix, City Clerk FROM : Donald L. Spaid, AIP � Planning Coordinator S U B J E CT: Capi tol Area North Study In reply to your letter of March 4, 1975, regarding the Council 's request that the Planning Commission make its report and recommenda- tion on the above-noted subject, I am attaching copy of my memo to Mayor Cohen and Thomas Kelley advising that the Planning Commission had taken action on this proposal at its meeting of February 28, 1975. Attached to the copy of my memo is a copy of the resolution and recommendations of the Planning Commission. DLS:Im Attachments 421 Wabasha Street, Saint Paul, Minnesota 55102 (612)-298-4151 55 � , � CITY Or SAli�'T P�1��_ �� E ri o R A r� o u r�, O�F10E U�- 7��-iE M�1�'OR C1�i�Y Pt_A��;i;�'G U�:P��RTIVIF[�'I� DU�.AI�I) L. SPf1tD PLANNii�`G COC)�'.DINATOR DaTE: February 23, 1975 T0: h?ayor L�v��rence Q. Cohen hir. Thomas J. Ke}ley FROP-9: Donal d Spai d RE: Capitol Area P�orth Study Attached are a resolution and recommendations �vhich represent the action taken by th� Planning Commission on this proposal today. 4Je unde�stanc! that this Tssue wiTl be brought up before the Cauncil on Tuesday morning at 10 A.r1. DLS:da • AGtachments 421 Wabasha Str�et, Sai;it Paul, ,'vlinne��ta 55�02 (612?-298-�15`i . . . . ., 3,;- �� ., � ��e� C�� :�ij��: ..� i ��}�� C��:��''i �"t�,��0�3� �d�� °�� 75-5 ��`��' 2-28�75 � NlHEREAS, th� Planning Co;n,�nission of the City of Saint Paul has revie,��d the hlinnesota S-tate Capitol North Study; and 1�lNEREAS, tl�e Plarin-ing Co�,:�issio:� co�sid�rs a rej�i-ta7ized nor�h Capitol area as n�t only si�nifican� to the Capitol Area but also to th2 �o,,�ntown and the City; NO'�J, THEREFORE, BE IT RESOLVED, That the Planning Corrmission approves the P�1i nnesota Si:ate Capi tol North Study ��i th th� qualifications and changes attached, and ur�es the CapitoT Area Architeciural Planning Cor�r;ission to seek fr�om �he P-linnesota State Le�isl�iure T�?nds to b�gin ir�pZzr�ntation of the s-�udy; and be i�t FURTHER RES��VED, Tha i, the °1 anr:�ng Co;,�mi ssi o�� clesi res to �?aint�in a continui�g r�la��oi�ship L,,ith th� Ca�itol Area Architectural Plar�n:rg Cem�7i�sior as i.r�is dz�y�21o��ent proc�eds. . , � - ' ' ., . �:'� ., n , .: _..• _. � - .,_. _, _._ .._ . �___.__.__._ . ___.. ___ ...._ .._ [ ! � - � � �� I,III'�� . � • , . :.�.._ � : ' .� '_. � - . ....`/ ' A). �. . 1 il� _ ,.,�;� 7_'�...._...,_.._ � ,.. '� ____��...__... �_ `' - '��!^?`� 1 �� t, " • : , . y � RECOi�1'�IEPaDATIOidS Oi�� CAPITOL AREA flORTN STUQY By Econo�ic Cevelopment Committee and Transportation Comrnittee The recotnmer�dati ons whi ch fol l o!,� are a re,ul� of a revi evr of the Capi to3 Area North Study by the Econom�c Develop;�en� Commitiee and thE Transportation Committee. A detai7ed discussion of the tr-ansportation issues is attached. RECOi�I,'�EPdDA7I0NS 1 . During the test period when ulabasha Street is closed, tra�fic volumes and cong�stion should 6e analysed throughout th� entire Capitol siree�t sys�em so that appropriate modificatior�s to the system can be p7anned, sche�luled and funded befiore'i�dabasha Street is c7osed permanently. 2. The intersection of hiarior Street urit� Cono Avenue and Lafond Stre2t may reCUire a gr�de se;�aratiar. �ppro�riate rignt-o+-t•tay may hGve to be reserved. 3. The CAAPC is requested to join H�ith the City to recammend that the State improve tn� P�arion Street/I-94 interchange and the route do�m the hi7i to the Civic Cen-ter in ord�r to improve this route as a major do:•rnto�rdn access from Como Avenue. 4. Jackson Stre�it shoulcl have a li�r�ited access character; the houses wh-ich currently front on it should eventua7ly b� acc�uired. „ 5. The prop�s�d offse� intersections oz Edmund and Como Av�n:�es �•rith Rice Si:reet 'pose a potential traT�ic safety probl�m. Internal street redesi�n sho�ild na�ntain access aci°css Pice Street in a mannet, consiste�t aaiih the r�devel op�;an�t parcel s arc uses. 6. Bet��rez� Park Avenue and Cedar Stre�t, considera��ion sho�ild be given to using Sherburr.e �lvenu� or a ne��r street immediately to thP north snoi�ld ser>>° as a r��inor street for in�err�al c�fc.ulaticn and as a bc��l�ua;,y te�.ayeen ti�e hospit�7 dnG� SC�t�� Q;�1C�S. � 7. Q,�ior,s -�or a s�re�t al i5;�,.r�e��l ci p:�r,:,;�y des igr� and pat�r: in th` Futu�,e Y�:.r.��!�(;�il C'.�E? Iri l,l''° `C�..S �,r�ti,��, i ,"',4^�L �:i� Tf�`.. � L �.�� C:r� c.c� S;IJ'.i�l'. F'•� f�t:i' "'`' . _ i•l. G�•.�t� t''- ��'' C�' � ��... -� . . ,�.� �.t� . ,. - ' �' r �- - � � , .� � t:;�� ir1 i.1=` � ��i:�; �� U' �`ci.;;;` C_tti.;'�1. c� ��l G�� 7 _ �! ,FII�C� � �_. � l;� �i:��U �Citlrl��i`.n.J ��> >:"�`i" '+i� ��'• �. t .. , r. ' , ' � . � . i �,,.. I u ? i��_, . �� 1.';) n�' C'� . �,`) _'i'�.l� i i.�� . ;�li,, I!��; I S� .C.• �.�.�rl _� ? � i - ` . �r � , _ r� , �� a,�e<< r�� .�,.�, L of . � I - ' , . c ,, , _ i i . � . r- - - -!- l .. � ,�� _. . � . � ...I ��! � �. Y'.J� l`_1 1 �ti� . . . _ '. .`lY'f _ i �� t ;: � I :. � �.., . �.I 3 �1,�� -_��: � �cl.i � � r.�. . _� � 1�..�i�1 ��1�� S a,C� i I .° r� �(.'" �� ?' �`i l l il.; �,�� (l.. � _,i r , ' �. . :,�i � (, :�i r. ,�1,,, i .. _ .��. ._� � t:t I :ti �,�._� f"ic , ft' `.'. �i . , , . . ; , ..,� _ _ . i _ , CITY OF SAINT PAUL �'�5�9°� �►TY p 1�a � �. A � �'i'; �:. � @� �� Rese Mix o n,,,;;;;;,; -� MAR 61975 Albert B. o�:op City Clerk and a� ;'_�1P'�' �a Council Recorder Council Secretary '�� + n° t;ITY A i�i UKNEY ..� OFPICE OF THB CITY CLERK BUREAU OF RECORDS 388 City Hall St.P¢ul,Minnesota 65i02 Phone,�98-k��1 March 4, 1975 r. . Mr. Pierre Regnier Cit Attorney ! Room 647, Ci �all St. Pau , Minnesota Dear Sir: The City Council requests that you prepare a resolution approving in concept the plan of the Capital Area Architectural and Planning Commission and that the Council support the funding formula with the state to provide for capital costs and the city to provide for administrative costs and that the Chairman of the Finance Committee meet and negotiate a final determination on the sharing of costs and , that the final determination be approved by the City Council. Ve truly yours, City Clerk � ABO:dcm O � �; CITY OF SAINT PAUL � �� OFF`ICE OF TH� CITY COIINGIL V � �}<:, � �� .f_, ,. �i'`%��nn�rn ._� } VIGTOR J. TEDESCO MARILYN LANTRY Councilman Legislative Aide February 25, 1975 The Honorable Rudy Perpich Lieutenant Governor State of Minnesota State Capitol -% St. Paul, Minn. 55155 Dear Lt. Governor Perpich: Responding to your letter to Mayor Cohen and Cauncilwoma.n Hunt dated February 14, I would like to extend an invitation to you to appear before the St. Paul City Council on Tuesday, March 4, at 10 a.m. It is my understanding that on this date you would present a report dealing with the study involving the implementation of the CAAPC master plan of the Capitol area. I have directed the City Clerk to place this item on Tuesday's agenda. Please let me know if you cannot appear before the Council . that day. Sincerely, Victor J. Tedesco Councilman cc-Ruby Hunt City Clerk✓(Please note: Plaee on agenda Tuesday, March 4) Mayor Cohen CIT'Y HALL SEVENTH FLOOR SAINT PAUL, MINNESOTA 55102 612/298-5506 ��:;.�;t.�` . _ ; � , y ' -�-� . `�� :... . . .., ' ,.. - -A. t' � . � - . � , _ .'' . . .. . . . : ` . ' � . . .. � ./ . �• _ . � . . � ,. � . . . _ . � r �. . � :. ... � � . :� ' i .. . . . 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' � '' , 'i . �f� . � . . .. . � .. � . . . - . �... . � a. . i . . � . �.i , . , � .. . .. . � . ... � . . .. . . . 4. ,. .. 1_ .. , � ... .. .. ". .. �� . . -. . . . - . ;. , � . ,. .. . .c. .i' �-. , .. . . . � - � -. . . � � . ' . . . . � � .. � � . ��.. � . .. � � '- .. - . . � . ' .. , . . . . . . . . .�. , . . .. . � . �it�i. 4'� ��s � � . } � ! - ' j .;�♦ �.�'��`-��,Q �..� . ... : .. � �.. l3amain� Coord�ui�t4�r � " (�r�tc� �ui.2dtag. � : , I :; i : St. Psu].R �Ltu`tWLs � ' � . . . ' . . . . . 1 � . ... . � � , . ..� . . . ,... . �'. . . ' . . . �. ��' . 1 . � - � � . � 1 � � . . �=�� - . ' �.�� i�:.� � . . � , . . . . . �.. . .� . . . .. Thi�-�t�r f�c�l Wdsy rsq�et�e+�d the Gi�p A�tos�► �v pi��ara•.a : � swtsolutiotr a�"P'kov':ttag �► ccmce�pt Lh�; $�tn of t2YS C�pi�s1''J1r�a - r�` �A7rc:2�.Csctn�al and Pla�oa�ag �s�ibn. ' . ° , . �f � � . . ' " . ' . . . . . '� � ;,. . �� u�.. � ; /� �"ba Co�+►+a�l sa�q�rsa��:tfiat`Lhe P1�m�ai,� t�m�a�#;�n m.�ici itrs . ' �os� �d �t��omrmd+�ioa to t� Gi�g C+�acii �o�c � +c�es�d��cati+u� , af�Cba �aur�luttod. , , . _ , , : , , - , : , 'Very ta�tlj �s. _ , , _ ,x i. ' ; . �� C3.ty Cl�zk . , , , , _ . ,�BO�dm� , � ; , , �- ,. . . - , - .; . ; , . _ _ � ; � �y ;.>�j; . _ � . ' � - , ,. . : � ; , ; ; ; ; ,,! � - . _ _ ; _ t \ �` J , � \ . _ , - • '� � ' . . . , . . ;.. ' . ., , . .. . .. . . . . r ' � ' .. : : �j. - �1�L�1+�- �� , �ITY p � �- • S�Q. F,y /. � V y. 4 � 1 C _�!�, ib � � A '� MRS. RUBY HUNT CITY OF SAINT PAUL MRS. FRANCIS BOYDEN Couneilman OFFICE OF THE COUNCIL Legislative Aide CITY HALL AND COURT HOUSE SAINT PAUL, MINNESOTA 55f02 February 18, 1975 MEMORANDUM T0: Mem6ers of the City Council CC: City Clerk FROM: Ruby Hunt, Council President The attacFied letter is called to your attention. I would suggest that the City Cler[c place this matter on a Tuesday or Thursday agenda when there are no major public hearings. I /pm O . � ��M��A ,� -� -�-� CAPITOL ARE� Architectural and Planning Commission .h.. ;�.�w \4 � � '_1linnesota �j�'N$s� February 14 , 19 75 Reply to: F.00m 13A S�ate Capitol S�. Paul , Minn. 55155 Tne Honorable Lawrence Gahen �`ayor, and � Ru�y Hunt, City Council President City of St. Paul The 1974 session or the I�iinnesota Legislature zuthorized the Capitol ;_rea Architectural and Planning Commission (C�=.PC) to undertake a study to determine what Ztioul� �e involved in the imple- rentation of the CAAPC r..asterplan for that part c� the Capitol area dA�-c�ed to non-state use . ine CA.APC in turn retzi�_ed the services of the Ci�y Planning Departm�r_: of St. Paul and the St . Paul Housing and Re�evelopment Authority to �:*?dertake such a stud1. Cn January 15 , 1975 , the CAAPC adopte� a re��?ution approving the re�ort . In summary, the re��rt recommends clearance an� redevelopment for r_e�� housina and state office related commercial faci'_�iies . It also recommends re�!abilitation of a sub��antial area of housing �orth of the Capitol . ±: implemented , the program �;ould result in an at��roximate doubling of the population in the Sta�e �anitol area. The total cost for acauisition , r'lecation , nublic imnrove- �e::ts , rehabilitatior_ , ^cuse recycling, and other re::et�ral techniaues ir_cl•r-_'ing administration would a^ount to approxir�atel�• 514 . 8 million. The report recor��-�ends that both stµ�� and city of St . Paul :u^ding in this aMOUn� �� sought to imnlement �he recommended nrogra^. I i��ould notti like �c ask for an opportunity te present this report �c the City Council of S�. Paul and to seek i�= support . Capitcl �rea Architectural and P�,anr_�r.J Cqrtt�ission , ; , , 1 �` ' ;i (, � , ,, • ti' '`t-. ��, `--- ,',�,�.L Y = f �,-- � Lieute:�ant Governor Rudy Perpich Chair.�an . P.P/GG/da �� /S��'+� ;� � ��, CAPITOL AREA Architectural and Planning Commission �� Y � Minnesota A'N s Reply to: Room 13A State Capitol St. Paul, Minnesota 55155 The Honorable Wendell R. Anderson, Governor and Members of the Legislature of the State of Minnesota In accordance with Minnesota Laws 1974, Chapter 580, Section 1 - 3 , I submit herewith the Report and Recommendations of the Capitol Area Architectural and Planning Commission. The 1967 session of the Minnesota Legislature created the Capitol Area Architectural and Planning Commission (CAAPC) as a permanent body to "prepare, prescribe, and from time to time amend a comprehensiVe use plan for the Capitol area. " That plan for the restoration and development of the Capitol area was presented to the Legislature in 1970 ; subsequently the CAAPC was authorized to draw up and promulgate a zoning ordinance which provides the legal framework for enforcing the provisions of that plan. In order that the CAAPC could do more than just react to the plans of others through the enforcement of its zoning ordinance, and in order that it could actually take the initiative in implementing the sound and creative planning already done, the 1974 session of the Minnesota Legislature authorized the CAAPC to undertake a study delin- eating alternative means of implementing the comprehensive use plan for th.�t part of the Capitol area devoted to non-state use. The 1974 Legislature .also charged the Commission with making recommendations based upon its study. Transmitted herewith is the report of that study and the Commission' s recommendations. CAP AREA ARCHYTECT RAL �l�D PLANN�NG CO ISSION ! ;l ; / � � ._� �� f�. .� Lie ��Sant1Go nor, �;�dy erpich, Chairman � ADDITIONAL COMMISSION MEMBERS Dr. Thomas Reichert Marjorie Vogel Victor Reim, Jr. Richard Stauning Solveig Premack Executive Secretary: Barb�ra,� Penn Gary Grefa�ik�erg � � � � � � � � � � � � � � � TABIE OF CON�BNTS p�g I. INPBODUCTION 1, II. DBSCxIPTION OF STUDY ARBA " 2� III. STUDY AREA OBJEGTNES � 3. IV. REPORT AND ACTIVITI$S 6� A. Physical Coadition Data 1. Bxisting Land Use � 7. 2. Building Conditions� g, 3. Utilities� 11. 4. Street Conditions� 12. 5. Circulation� 13. Co�nuaity Facilities� 6. Open Space 14. 7. Public - Semi-Public Facilities 15. & Institutions 8. Social Patterns 16. 9. Hea1tF�, Safety and Geaeral Welfare Cond�tions 19. B. Citizen Participatian 20. C. Land Developmeat Plan and Program for Implementation Beport 1. Blements a. Market Potential 29. b. Visual Analysis� 36. c. Treatment Areas� 40. d. CAAPC Camprehensive Plan� 42. 2. Synthesis a. Special Land Uses� 43. b. Proposed Circulation� 47. c. Planning and Design Fremework� 49. 3. Illustrative Site Plan� 52. �Graphic. Illustratious � � � � � � � � � � � � � � � TABLE OF CONPENTS (continued) PAGE 4. Proposed Redevelopment and Techniques for Implementation� 54. a. Major Impact Area 54, b. Conservation-Restoration Area 55. c. Future Action 57. d. Govercunental-Institutioaal Precinct 58. e. Composite of Public Improvements 59. f. Implementation 63. D. Budget and Method of Finance 6S. 1. Costs 65. 2, Potential Methods of Finance 67. a. State 67. b, city 68. co C. D. Funds 68. d. Tax Increment 69, e. Private Investment 70, 3: Recom�ended Methods of Finance 71 �Graphic T?lustrations � � � � � � � � � � � � � � � INTRODUCTION This report is the culmination of the combined efforts of the Capitol Area Architectural Plaaning Coimnission of the State of Minnesota, the Saint Paul City Planning Department and the Saint Paul Housing and Redevelopment Authority. It reflects a coordinated effort among the aforementioned and the Capitol Area Citizens, residents of the neighborhood, in the assessment of existing coadi- tions and the delineation of alternative means in the implementation of the official Master Plan. While recognizing that the proposals contain�d in this sum�ary are bold and require the expense of time and money the intent has been to provide a physical development plan which capitaliaes upon the full potential of the community. The eavirons of the Capitol Area are graphic examples of the problems of an urban society. Gone is much of the unity and vitality envisioned by past plan- ners, and in their place lie blighted structures, incompatible land uses, and deterioration of the werall community fabric. It is thia myriad of disecono- mies--these consequences--to which this effort is addressed. Included in this report is a sumnary of the findings, objectives and proposals �hich have evolved from the planning process. The continuum, from assesament of existing conditions through synthesis to an illustrative redevelopment plan, provides a means by which the observer readily becomes an active participant in its evaluation, Also included are the range of techniques and methodologies necessary for implementation of that which is proposed. Th� needs of the Capitol Area are critical and upon the adoption of this plan, immediate actions should be undertaken to begin the first phases of conservation-restoration and develop- ment. The programs and techniques needed to achieve the goals of the Minnesota State Capitol Area North Plan are in existence. The means to which this end is achieved can only be matched with the continued efforts and dedication by both the Capitol Area Citizens and the Capitol Area Architectural and Planning Crnrmission. - 1 - � � � � � � �' � � � � � � � � �\ �I .� � � I �i ! 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'',.•'::k•' R0�1lf�.� _- �'i�'i t: ~.Rr'�Jy fl6t s r��,:?1.y�"�. a:` .�e, ,;I �y;:+'��4'v''t}'fyv! ti .'a lf,r�{Y•� � "�'��: ic�y�.�: j�;r� � �yr'S;�fk � ;�;,�,:,, ' � � � � 0 n " . ❑ ��i :"�;�:�`�`�;, 4 i p O � ,-'f�'-;- _ � � I g ' 11 ;�. � � � � o ° � � � y �' � � �� ° � a' � � �' �. � � < � s. n � �. �. r-* � � �. � � � � �.. ,.� O � � g � � � � � R � G � � � ►� e p, � �: �..+ �D ("� � �-! g � � � � � �t �D � �, O. C, � '� � # . a � � � �`�S = M � � � �: a �� III. STUDY AREA OBJECTIVES STATEMENT OF DEVELOPMENT OBJECTIVES Th� primary overall development ob,jective in the Minnesota State Capitol Area- North area is to eliminate and/or ameliorate those existing conditions which serve to impair the health, safety and general welfare of the citizens of the ares and the citizens of Saint Paul. These conditions also serve to inflict an economic blight upon existing private investment in the area, threaten the sources of public revenue and induce many members of the community to no longer consider the area an attractive place in which to reside and do business. The conditions which have been found to exist causing the above-noted factors include unsafe and unsanitary housing conditions, overcrowding, building obso- lescence or faulty arrangement in building design or improvement, deleterious land use, lack of adequate light, ventilation or sanitary facilities, inadequate public facilities such ss parks, playgrounds, schools, streets, sewer facilities, or other equally deleterious conditions. There also has been found to be an inadequate supply of decent, safe, and sanitary housing in the area and in the City of Saint Paul, and a primary objective of this Development Plan is to remove and/or ameliorate the conditions noted above through public intervention so that private enterprise will achieve the means and the encouragement to provide such decent, safe, and sanitary housing. Additional general development objectives related to the above are: To develop, conserve, rehabilitate, and foster a neighborhood residential emiironment conducive to urban living for all segments of the population, The neighborhood should have amenities sufficient for modern needs, be safe, be adequately serviced and be visually attractive and economically stableo To restore, conserve and enhance, where feasible and desirable, the identity of the area by strengthening those elements which serve to give identity to an area, such as neighborhood gathering places, educa- tional and recreational facilities and similar elements tending to characterize and/or give identity to the area. - 3 - � � � � � � � � � � � � � � � Each land use should function efficiently without adversely affecting or being adversely affected by adjacent land uses. New construction should be physically and visually compatible in design and scale with neighboring uses. Specific objectives to be achieved within the context of the foregoing are as follows: 1. To remove blight and conditions of deterioration by; a. Encouraging and fostering voluntary rehab�litation of property by owners. All rehabilitation will, as a minimum, meet all applicable codes of the City of Saint Paul, b. Undertaking a program of acquisition and demolition of buildings blighted to the extent of being incapable of rehabilitation, substandard buildings, or buildings otherwiae determined to repre- sent blighting influences. c. Undertaking a program of code enforcement with the appropriate city department to ensure that hazardous and unsanitary conditions are either corrected through rehabilitation or eliminated through demo- lition. The term "cod� enforcement"for purposes of this Develop- ment Plan shall mean subsCantial structural repairs, alterations or demolition of a building to conform to local housing codes. 2. To increase the supply of decent, safe and sanitary housing and to encourage the provision of new housing of varying typea. 3. To secure the development, redevelopment 'or expansion of public and semi-public facilities contributing to the attractiveness and safety of the neighborhood as a place to live. Such facilities shall include parks, playgrounds, schools, churches, com�unity centers, utilities and sewers, libraries and aimilar facilities as appropriate. 4. To achieve safe and adequate vehicular and pedestrian circulation pat- terns and capacity in the area through: ; 4 - � � w � � � � � � � �. � � r � a. The redesign and reconstruction of major streets where necessary. h. The elimination or reduction of unnecessary through traffic or other factors detrimental to the residential environment. c. The provision of off-street parking where feasible by commercial , and other uses which generate vehicular traffic. d. The reconstruction or construction as needed of eidewalka, pedes- trianways, street lights, traffic control devices and other facilities contributing to pedestrian comfort and safety. 5. To foster the economic stability of commercial facilities in the neigh- borhood by acquiring and removing blighted and econanically obsolete commercial facilities, making sites available for new com�ercial con- struction, and by encouraging the grouping of commercial facilities at appropriate locations in the area where such facilites can be mutu- ally supporting and provide greater convenience and service. 6. To encourage new private investment by making sites available for new housing and commerciai construction. 7. To encourage to the fullest extent the continuing participation of the members of the community as represented through the Capitol Area Citizens and other citizen groups in the continuing planning, programming and implementing activities under the develop�nent plan. . 8. To give high priority to activities that imaediately result in the provision of new housing or other facilities that are supportive of a sound area environment. 9. To preserve the dignity and besuty of the Capitol and the building immedi- ately adjacent to it and foster the development of an environment sur- rounding the Capitol complex that will enhance gover�ental activities. - 5� - r � � � i■■� � �■ � � � � r � � � , N. REPORTS AND ACTIVIT7,ES The first task in any planning process is to assess the existing state of comnunity resources. These resources are characterized by both the people of the area along with the compositipn of their particular piece of community fabric. individual char$cteristics of the people and the manner in whfch land is presently utilized both have a profound effect upon the feasibility of any proposal advanced to change the ecrvirozunent. Although these resources represent a three dimensional-spatial-statement of an ongoing and dynamic state of a camnunity, those factors will be evaluated as a specific eleme�t in the mosaic of patterAS which make up a community. - 6 - r � � � � � � � � � � � � i r■� °a o° �° j U � °� �°°�� J ��° �I � �° J � o '� � a � o � � � � ��° (�- � ��o d o — do ° � o° C� o 0 00 � � o � � �-- Oo � Ooo � � � ° �iia o � I � �O �� ❑ a � � G' ' ° ❑ � o ° o --- _— — � .o � �/ � �MaFion-Stce�rt ��—� �� ° ` � � � �� 1 �� o i �� e � o I� � � �i � � � i � , � � g i : �� I a � � .a�c I 3' I °r' � cl , o � , ' a I a,� � : � � a � � � � � � �< � � � O - - � . � J � 11 .,�� .. � ��' ■ � � � ) ----- - �--- � __. J � — — — -— ' Riee Street — � r — — — > ■ � �� ■' � � � � ' �o a � I�I �' � � �S � 'o � ,� ', .'1 p � I m \ N fp �C � ly � �I . � �ry�-�I .� � W D . W < �N� �.I� �� "1�.� . ��j lel � � c �:: �y\ .. , I 7� � � � N I ...� � �''. �\. W, IN� � �.P.;� � �� F � �, ,I \\'W\ i� � �I� � ��?� 11 1� � I .,._�� .� ��' .. '�e._:, � � . __ - l _ _- - --� -- --- _-== - - --J �W _�JI� _- — -----� Park Street I --- - -_ -------- -__. ..� � � , --- � —� �-- _ ! � —; � E£ i ! i � � ; e� � F� s:, ,� �� ; � , , . � , � ; � �' � � �. � , � I , �� ;��: ' � ; � � . ��. � , , _ � � �� , � \ a�p'itof�oulevard -- .— � -_ --- __ �__._. _�� ' � i � � � � � �� i , i ! �1� �'j �� a I I� i I i I i I I I � � `Y�,.''�,� ! �I I . � � __ " I I I I � ~�; E.;.,„..,.. � �� . I i .., ` I I � � ' � ,, � � ,;� ; ;, J �_ , ____ � �— ---_� �.____ ? �, e , � , �, ; — — , - �. --- Cedar Street ___ --- � < � � : :� r ,-- __ � .�1� ': .��-� i� ' - -- I � I ' � � �-� , , , � � I I k"�"�w`"` I � I � "�.,.""��j � � �� i ,�-�. �` i I I � �;,� � � , ,i \'\ I I � �-_ ---� �- ��'/ `�� ; t. \ I � - , i � � � � /�` �� 11�, �/' ,�,�°'� � � ' 4 :' I `"� � 1 `� �� .a, �� I�?; � i :, +�� ,�ya � � � �. � � � °``�0 Robert Street ---- � � � - �I I .� r \� / _ �I ��) � /��--��-- l � _J �� /�/ -�I, ' � �� ',// � a—�_ �� I � v � i � -- ;-� ; ° oo �_ ; -,�- ,= a �; � \� i �<e` ' 4 � p O � � � . ��s� � i g0 � � �� il � �aG% L1 i � � � � � � � � � � � � � � r . /� r. "I� � � �i � � a � � q � � r... � � � e �'o t�o' t�o � `.S � �; � � � � � � � � � � � � � ., € � a g � : v� _ � �D � � � � � � � � � � � � � � � E%ISTING LANll IISE The existing land use map reflects a mosaic of varied uses exemplifying the consequences of an outdated zoning ordinance and the disecon�ies of urban grawth. (Albeit, a new zoning ordinance in 1973 replaced the outdated 1920 zoning ordinance of the city of Saint Paul. 8ffectuating the needed remedies is a slow and pragmatic process. Its fra�work has been guiding and monitoring all physical activities within the Capitol Area and will continue to foster those which are consistent within the Comprehensive Plan.) The primary concentration of commercial land use is a linear pattern along the block faces of Rice Street and University Avenue. The viability of this comniercial-retail strip has been ten►pered by a lack of adequate off-street parking and the lack of adequat� expansion space in response and conformity to current site arrangements. The existing conimerciai pattern in many instances has an adverse effect on neighboring residential areas due to blight caused by a lack of parking, commercial unloading space, and a lack of adequate and protective buffering. Mixture of residential uses range fram single-family to multi-family throughout the area. Classifications of residential categories I through III refer to the density of use, or to the number of units upon a site. Residential I represents a single-family use and Residential III is of a higher intensity of use, or simply designated multi-family. Institutional and governmental uses of land represent a significant portion of the study area. Bethesda Hospital, the Minnesota Educational Associatfon, and goverrnnent administrative facilities along with supportive parking con- stitute a large portion of the central study area. Christ Lutheran Church on Capitol Hill at Park Street and University Avenue complements the signi- ficance and architectural character of the immediate "Capitol" area. - 7' - � w � r � i � � �■r � � � � � � r � � � r � � � a� � � �■�r r � � �a o� � � � °� � ��t�o z--�.� " o o° � � u� Q o � o 0 o� o 0 0 0 '�� CS p� ��d I� O ° � o a � c °� t 3 r�° o ° � pa � p o � o p • t-1' o e o O e 0�] � C� � �] � � °�o I o �7 �� LMaHen-Strs-st � � � \� � 0 � � O a-,<F � �' g3 - * � 1 ❑ �� ; o *,:e * � . �* .. m � a * : c d � � � a a � � < < � ,....._ O m �t °� � � � � � � � .° Rice Stroet a� $ a � a � m �`P = �3 " �� o�� o m o a ��. � �� o a � � � �� :.: � � a � i< � �.; I� �� » �� ",.,, � d � �9\ b C C� ,,,a .:,:.n I�9 s � 4� 0 * � ° � ,4, �0 � � — - � � — Park Street _ _ � � Q II ❑ Q i li � ' * �"` I � I o u�'I � i, � � � � li i '"� I a � ��" I d °; � / � ap to ou evardl , � _ -� --�J � � � �p � r . � �� I �I ` I �.,?': IO � / I I _� �-_ _ � ; ..,.. O / Q edar Stroet � I•;� ;.•� / / � � �-- � � I � % � ,� � n � �j' �' �i ;:� � i ' � � '�� , .��`� n I ` a � �� .� y�a " * a �`�a Robe►t Street i� / �� \ �� °I � %�—�_ _ o � o - i-' o , � v o � ,- � o 0 � � �� ❑ � I . o i ov 5��ee i��//� ,� Js�K�c - Q � Y � � aaa � g � � � � � ` � � s � �' � a � � d � ., aa � � � = g � M M � O f ; � a � �. � �. = o � �C, � � � � � � � � � � � � � � � � BIIILDING CONTJITI�NS Evaluation of building conditions is a vital first step in the planning process. Any system for classifying buildings must produce an accurate description of observed conditions and be based on clearly defined and acceptable standards, The criteria utilized for this study was in accord- ance with building deficiency standards as delineated within the Saint Paul Housing and Redevelopment Authority Neighborhood Development Program+-1969, as amended. As each structure was examined, inspectora noted all deteri- oration and inadequacies as they might be influenced by age, quality of maintenance, adequacy of original construction, and obsolescence, regard- less of whether code violations were present or not. Upon completion of the inspection and subsequent evaluatio+� of the field survey, an overall building condition rating was established from the following categories: Sound -- A structure with minimal defects and in a standard condi- tion requiring normal maintenance. Deficient Buildings contain defects whf�ch are not easily correctable and cannot be accomplished in the course of normal maintenance. The classification of minor or major reflects the degree or extent of defects found during the building inspection. Minor -- A structure classified as deficient--requiring minor repairs-- hav ing more than three minor defecCs. Ma or -- Buildings classified as deficient--requiring major repairs. Substandard -- A structure containing defects which are so serious, so extensive that they adversely affect all or a large part of the structure. Blighting Influence -- A term used to describe an existing condition which (1) applies specifically to the building being surveyed, (2.) has . an apparent adverse or degrading effect on other existing development. - 8 - � � � � � � � � r � � � � � � Types of Blighting Influences are: Incampatible uses or Mixed Use -- a use (or a mixture of uses in a single building) that is incompatible with the majority of uses in the immediate area, such as a mixture of commercial and residential use in a single building, or the presence of a manufacturing use in a predaninantly residential ares. There must be a significant adverse effect generated by the incompatibility or admixture. Overcrowding of Buildings on the Land -- Bxcessive land coverages by buildings resulting in a restriction of access, servicing, light and air circulation, and other factors which impair the functional efficiency of the building, or the health and safety of its occupants. Excessive Dwelling Unit Density -- Overcrowding of dwelling units within a building, or on the land, to an extent that the health and safety of the residents of the particular building or neighborhood building .is endangered. Obsolete Building T�rpe •- A building which can no longer efficiently perform the function for which it was originally constructed. This may be manifest in vacancy for an extended period of time, in full or partial abandonment or in cocrversion to uses which are unsafe or unhealthy for occupants. Underutilization of Land -- Undeveloped land, or land developed signi- ficantly below the level of development of the neighborhood and its ecrvirons constitutea a blighting influence. Such influence is manifest when such underutilization has a retardant effect on the economic, physical or social health of the neighborhood. Other ldentifiable Hazards; Vacant and nandalized Structures -- Structures which constitute attractive nuisances to children and adults which are vacant and which are vandalized or are open to varidalism. Combustible Materials -- Structures covered with combustible materials and located within four feet of another structure conetitute a danger of spreading fire. _ 9 _ �w � � � r � � � � � � � � � � The aforementioned criteria and building conditions ratin�appear in graphical form for review. Within the entire study area, 333 buildings were inspected. Of that number there were 121 structures rated substandard and an additional 52 structures found to be constituting a blight for a total of 52% in the entire study area. Review of the conditions indicate a concentration of substandard and blighted structures existing between the half block bounded by Marion Street, University Avenue, Rice Street and the alley lying between University and Aurora Avenues to LaFond Avenue. Of a total of 163 structures, 64� were found to be substandard and blighted. In an area east of Rice between Sherburne and Camo Avenues, Rice and Park Streets, 62,� of all structures were found to be substandard and blighted. Perusal of the conditiona along Winter Street indicate a relatively sound to minor rating with minimal scattered substandardness. - �10 - � � � � � � � � � � � � � � � �° �� ; �° �� `� °� ; ° °�� -J� �❑° °�; ``_' u�_J �a a � n � � i � i � 1JGn� i � �� i �I p d � i — — � � i � � � � � � � � � � � i � i i '�..~7, � i � �p � � � n Q � � Q � � �CI � � � � '� �w �� ° � � ° � � i � i i C.7 O� � i � � a L..i i I � � � � � � � � �3 A�, � �;3 � ------�--- ----- ; ; -------- i — i ' � . ______ ________ � � 1 � ' - � .;, �---------------f ---- --- - ----=--- -- -F ---- ---- ----------- — ;;� 1 __ � 1 � _. - � ii 1�: � L� � �� 7 �� _ __ � �ii�, �^a, _ � 3�.i i � � � (� � i� Ky �1 i � , i i � � 1 � ' . _� � �T.. � � � i i i � � i i� � � � �;I� � � � : �i '�s � i i � � ; '� __ � � O i . � � � C117 � � I� . i 'i i� , .-__.. 1 'F C) t.....3; t � _ � �i � �. ��--�.I� '�. 1 ' '.,,'�;, � ' �'....... 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Y: ,�� ....�-r. a` �{� I � � -� \ ,,% °�-- • , ; a -- -� , i :/ .I� � ��'1 ; � �� . ��•-'.� ' —� _ • �_ ,t�r: �, : t.�.-�-�� ; �,/ ,, t.� � : , , i�� _ � - -- , ..... _ _ . : ,, �; . : � ; /%�O, ` .!i ; �' ' t ; - ___ „ ,.,� � ;� • ,. .- , � . : � ; E_:.... , ; � , �,,.-,.- ' � ;� � q � �:: �,/ � �:......:::::'; � � \ , -../ j 1 � � C7 q . i �'�- �' .;.%"f ' �� C7 ,' .;- � . �; ..�- � .;- � ..:./ � ; :::r �: '�'-:�cg��`" c� � c, ca ;/'� . r, .-o / \ \ �i •�,,.,.�sc�8° � �: ! ° i � `„i � x ! � . �""r ""' � � � C � � � � � � eo � r.,,. � g g �, � �D 5 � � � � § � �t e � O __ � ;�� a � � � � � � � � � � � � � � � UTILITIES An inventory of existing utilities indicates a level of service appropriate for existing uses. Inclusion of this schematic delineates existing loca- tions and provides an appropriate input in the assessment of implementation alternatives. It should be noted that as changes in land use and proposed . redevelopment are introduced, changes or modification of utilities will be required. . The following narratives attempt to generally describe the various existing utility systems, comnent on their adequacy for proposed development and identify potential problems in vacating certain streets: Water The Capitol Study Area is serviced by 16" diameter arterial mains along Cano Avenue on the north and along University Avenue on the south. In addition, a north-south 20" arterial main runs along Rice Street. All other network distribution pipes are 6" in diameter, which now adequately serve the residential/commercial area. However, redevelopment with a subsequent increase in population density will increase water demands. Although present arterial pipe capacities should be adequate to meet future demands, some network pipes may need increased capacities. In particular, water pipes in the Capitol Avenue/Cedar Street area may b.e inadequate to service additional high-density development. Since water consumption and fire fighting demands are contingent upon both population density and type of development, final water demands of the Study Area cannot be assessed until the scope and extent of development has been defined. Sewer The waste water collection system in the Capitol Study Area is of the com- bined sewer type whereby one sewer pipe network collects both domestic wasCe and storm runoff water. Canbined sewers are designed with capacities gener- ally great enough to accept storm runoff water. The Department of Public Glorks - 11 - � � � � � � � � � � � � � � � of the City of Saint Paul currently has no plans for storm water separation in the Capitol Area. However, intensive redevelopment could cause increased storm water runoff which would necessitate the construction of storm relief sewers. Sewers in the Study Area are in trenches. This sug�ests that any sewer improvments required should not entail any excessive costs because of extra- ordinary or excessive excavation. Soil boring results in Block 87 and also in the Mt. Airy Homes area show that rock formstions are not to be expected at normal excavation depths. Electrical Generally, all major electrical feed lines are underground in the Study Area with service hookups overhead on poles. Since about 50� (or approximately 2,500 linear feet) of the total length of underground lines lie in alleys or in easements across private property, redevelopment between Marion and Park Streets will require temporary relocation of electrical service feeds during . construction. The extent and number of easements required for electrical service will depend on redevelopment plans. Gas and Telephone Gas services do not present potential problems except in proposed street vacations where easements will have to be provided or the gas line rerouted around the development site. Few problems are expected with telephone ser- vice locations. Service in the area is approximately 50� aerial with the remaining lines underground mainly in street right-of-ways. `� - lla. - � � � � � � � � � � �' � � � � I � � � �------� � ----� �-------� �--.----� _ �-- � , �--� �--- 1 �- � �� I i � ; ' B.�Td 3�,i�'.b r �. e . �o¢ , q..a+y'� � �'�..�.H Z..a3a s a-_,, '?:..se � ` �.,ia9�,�. ,� ;�..,�Z t aifi� � .�d� i��.+ `�,; � °?$^�� .&. 6`�,,.� � � � �� I �� a�$�.'.. I I � � I' �� .�. ,. C e� I � 7 � d,;� x.#, ..�:,. ;�' _ C I C) II a ;� m � � � ' � m : tn i / a ' a" I ' j < � ' » ' � � / � � _ uummuuim Ij � I 0� uimnumiuiniuunn�nu _ / ='nuinumuinniinr i nun �`� � __ in� � � t aaa�ast�sanuumnnuunuiui�� \� � \\�� : r�k�3,, �.. e,,.� � � / \ � / ��, . i � � � ; � ; � � ;°; ! � � � � a a a � < < � eoa e-� � � s, S, �. $. c c � "s 5' � $ & � � R � O g � �. ,�, a 5 5 b ,�, � v oa � 7 � � g g, g � r'I• � ? � D 7 c+ O 5 Q = O. O � °� � °: E; °-: E `.� - » � � c � °o � 5 � a� � � � � � � � � r � � � � � � STRS$T CONDITIONS Surveys of existing street conditions were conducted to determine service- ability and indicate in which areas improvement efforts aeed be directed. Sixty-two percent of all streets within the Study Area are hard surfaced, either monolithic concrete or bituminous. Of this type, �our percent �ere found to be in poor condition. The remaining streets within the Study Area are oiled surfaces. Within this classification, eighteen percent of the surfaces were found to be in poor condition. Review of the Street Conditions Map indicates that curb and sidewalk condi- tions range from good to poor to non-existent throughout the area. An inventory of these conditions dictates a minimwn of replacement "in kind" throughout Action Areas to those of major modification as indicated within the Proposed Circulation aad Illustrative Site Plan sections. . - 22 - r � � � � � � � � � � � � � w B d °� 4 � °� o ��0� �� o�° �� "`� Ll0 J Q o � ° p � Do , � �q� I�, �� Od o d o � � C� � o.�o o I � � ❑ p o p oo a � o : � j a e ° � � � �� ❑ a � �j a ' ° � � � ° o 0 � Q .o i Q � �—-', � r� �� - _,, � I �� 4�' ° � �o �1 �Q e � I Q � i 0 � � � � � ° I 0 � �I � � d q 'i � QI pa � � O p c � � I.J ,� � � i I f � D � II � A ! � � � � � q � , , i o I ° I , � I n I o � °I p � � I �al c, � � ', ' `� G � m o I � y I ❑ �m '� 4 O A 'D II ;; � a o o p o . � p m e I � ��- ; a o � �.° o � d ii I o 0 0 � ' � i � o I �7 , 7 � I; ' � � Q � d0�� 0 � �� o � Q � 9 o a, ! � ❑ a � d�Q 9� u � � � �W -__.._ � apito oulevard 6a` � � � � 0 o e0 i � p� � , o � � I �� 4 e p / Q '� Y ,,, ,. . a 3 r�:,;� ° , , ...:cr.,,. '' A p�// O ::.�,��e ,�;., ;-: ,,.. ....l�rfi, w;� � Q�� .,/'Q�, . r8, .. .... 'r. � / �� \,\� � '�q� � � ,��I � � dd ��' �, � o 4 Q. ,, � \'� ' _ �� e9i � �� o'��' � ��,I �,,`�� o � .,, � �I ,0�' � , ��;� d'��❑, � � � � 5a� Q � � - � o � °� Robert Street � � ��' ��i��' �'�0 � �� '�� ,� —� - —-- -- � i � � � ' ��1 � � , �� —��—al � � � ��/ � ❑ � � �� o ❑ / � ol I v � / �, , o �; � � � �� r� �I � n � y � tn o C" � � p � 0 g U f�7 � C' f1 I�� 8 �, g o O � 7. � e-' Q� 5 � M q � r� � a � $ E �• e p1 � � � � � ., 's e`o �, � X o � �t � � � �p, P. ? � `C �D � � � � � � � � � � � � � � � CIRCUI.ATION Street classification and existing traffic volumes indicate that the Study Area is surrounded and crossed by heavily traveled streets. xice Street carries over 16,000 vehicles per day, University Avenue nearly 14,000, Como Avenue (between Rice and Park Streets) 7,400, Marion and Jackson Streets about 6,600 and Pennsylvania about 6,300. Theae figures coaipare with 36,000 for Interstate 94 near downtown, between 5,000 >and 15,000 for most downtown streets, and between 10,000 and 20,000 for most major arterials around the city. Reported traffic accidents are compiled by the Police Department, and there- fore broken down by grid. Rates per resident population,perhaps an unreliable index here, show that the area west of Rice Street is close to the city average, but the portion east of Rice is more than three times a� high. Reasons for this high incidence lie within the introduction of through traffic into the area (Como Avenue west of Rice to Jackson Street, and Park Street to Arch-Pennsylvania Avenue) , existence of narrowed streets accom- panied by on-street parking, and a varied topography throughout the a�ea. University Avenue, Rice Street and Park Street to Como Avenue serve as a major transit-bus corridor linking Minneapolis-Saint Paul CBD's, and the northern suburbs to Saint Paul Proper. - 13 - � � � � � � � � � � � � � � � �7 a o p C]0 7n� �fl o �d�p �—L.r�,_' o po o � IJG 4 0 �• $ a Q 0 �� o p p p �� d O � o � po d c o � s �� ° o O a 0�;7 C� ❑ a � �] � ' ° � I �p ° q .o _ 0 �Mallon-^s�ceat �__� � � d � � o�O O � a � � � � �� 4 0 � � � �e �w LI � o ° �7 00 � o° � .b� � O� � ° °6 ° � ° opN ❑ Q o ❑ ° °' ° , o �1 ❑ � ,Q� ,� � � . 00 O � 0 � � p �' p I d p e c v6�7 � q �■ � o fl b � p p m �8 � � p i ° � �0 � GO �° � �0 � C'� a o . Q � � Q. � o � j �p � p d s � a �n � p � o � O a � o CJ a �]DOc7 � a4 � � s � y � a � � oW a � � � � 9 p � W p � ao 0 0 �. o o i ;; o o °4 m o 0 y a� ❑ 3 0 0 0 �'" C� � � a S3 O � '� • o � ■O � 4 O `o d �e � 3 � i� s o 0 o O p o o e a ,� m � � � � Ro o � o � � q 0 O � � �s �� 0 0 ° q o � o C� ° � �� u d � aaadaQ o � ooa � o ' � � n — � l — Park Stroet Q � I ❑ �� QQ � � , � d ❑ O o a o pp o � Q � �b 00 � apito ou va N_ �� J � �, p p vo° Q i � po o �0 0 �J �❑ 4� e p Q edar Stroet -� - � ■ p a o � � ��0 4 � ��q � o I � � a� �� Od� ' � � qQa4 � a �� ; s �P'�'a' � � � s,�Q o� oo. � o0 0 0 0 0 �� a �m �`�0 Robert Street $ � - � � �� °I ^ O � / �_ 0 0 �., � �/i � � / � o � oo - / o ov � � .N� � i � aa � � � g � n ►e r � o � a � 5 �' b � w � � ° ' �.+ e u y ►� � � y v � a �' c�o �� r. '� � � � � � a � C� r•�• _ � - I.r. rf ^ F�►• ��/ � � � � � � � r � � r � � � � � ` OPEN SPACE � � Open space within the study area is non-existent with the exception of a number of scattered vacant parcels. Vacant blocks (non-building areas) within the Study Area are monopolized by State parking demands, particularly a block bounded by Sherburne and University Avenues, Park Street and Capitol Boulevard, and two blocks bounded by Charles and University Avenues, Cedar Street and Capitol Heights. Within this latter area, the southerly block provides a number of good vistas toward the Capitol, downtawn Saint Paul, and the expanse of the Mississippi Valley to the southeast. The scattered vacant parcels, because of location size, debris, or topography preclude any opportunity for active open space areas, and because of their scattered nature has prevented any formal link among them for a passive open space system. xeview of the existing community facilities map depicts one good-sized neighborhood playground facility to the west and two additional parcels to � the east and southeast respectively. The hesvily traveled corridors af xice and Jackson Streets separate the residents of the Capitol Heights Area from the Scheffer and Valley Playgrounds. Only one controlled intersection exists on each street, requiring children to walk several extra blocks to cross safely. - 14 - � � � � � � � � � � � � � � � PUBLIC AND SEMI-PUBLIC INSTITUTIONS Due to its location on the fringes of the Saint Paul CBD, the Stu�iy Area is dependent on the downtown city-wide locations for many of its services, The area lacks any type of public, semi-public or private establishment that is truly "neighborhood" in character. The recent status of the public schools has been an unsettling factor. Elementary school attendance boundaries have been shifted since the closing of Scheffer Schoal on the northwestern edge of the Study Area three years ago, The Scheffer attendance area corresponded almost exactly with the Study Area. At present, the dividing line is on Rice Street; children living west of Rice Street go to Jackson School and those to the east go to Franklin School, Jackson is six blocks west of the area, Franklin is one block east; both schools were built in 1924. Older students all attend Mechanic Arts Junior-Senior High School, one block south of the area but this school is in the process of being phased out. Present plans are to build two new additions onto Central High School, moving most of the Me�hanic Arts students there. The public library service in the Capitol Area is dependent on the Central Library, 90 West 4th Street, downtowno This is located just over a mile away, across an interstate freeway and several busy thoroughfares. The Rice Street Branch Library, 995 Rice Street, is located about the same distance to the north. There is no bookmobile service in the area. The nearest fire station is the City Fire Department Headquarters located downtown at 101 East Tenth Street, about one-half mile to the south. The nearest branch stations--one at 235 Front Avenue and another at SOS Payne Avenue are both about a mile away, Saint Paul does not have police precinct stations; the station at 101 East Tenth Street serves the entire city. The nearest post offices, three of them, are also located downtown. Three public housing projects exist just outside the boundaries of the area. 1�io of these are entirely for elderly residents, containing a total of 420 units and the other houses families in 298 units and elderly people in the remaining 176 units. - 15 - � � � � � � � � � � � � � � � SOCIAL PATTERNS Portions of three U. S. Census Tracts are included within the boundaries of the Study Area. Data for Tracts 327 and 328 were used to represent the Study Area where block data was unavailable. A. Population From 1960 to 1970 the area experienced a decline in total population fram 2,413 to 1,994, a rate of 17.4%. This compares to a 1.1% decrease for the entire city of Saint Paul. Out of the 1970 area total, less than 1% were Black, compared to about 4� for the entire city. Though several blocks showed population gains, the total loss was spread throughout the area. Acquisition for expansion by Bethesda Hospital and for the upgrading of Pennsylvania Avenue resulted in approximately 300 displacements during this time. The remainder of the decline was primarily due to out-migration, not to a decline in housing units. The block bounded by Winter Street, Como Avenue, Capitol Boulevard and Capitol Heights more than doubled its population during the decade from 118 to 247. This change, unique to the area, can be explained by an increase in tenancy; the same buildings contained 40 housing unita in 1960 and 74 tea years later. Since 1970 four private and public activities have displaced an esti- mated 330 additional persons from the area. The Minnesota Educational Association cleared a portion of the block bounded by Charles and Sherburne Avenues, Capitol Boulevard and Cedar Street for surface park- ing. Bethesda Hospital is nearing campleti on of a medical office complex and parking ramp at the northeast corner of Como Avenue and Park Street. In addition, some residential structures within the Bethesda Hospital complex have been acquired and used for interim housing by hospital personnel. Z�o blocks between Como and Edmund Avenues, M,arion and Rice Streets were acquired and cleared by the Saint Paul Housing and Redevelopment Authority in the execution of the Thamas-Aale NDP Plan. - 16 - � � � � � � � � � � � � � � � The State of Minaesota is in the process of acquiring and clearing a block bounded by Como and Charles Avenues, Cedar Street and Capitol Heights in the execution of the CAAPC Comprehensive Plan. Data for Tracts 327 and 328 sh�a that the area contains a greater proportion of those over age 65 and smaller canponents of husband- wife families and high school graduates than for the city. Educa- tional levels are strikingly low; only 347e of those over age 25 graduated from high school compared to 57� in Saint Paul. B. Incane and Employment Income levels in the Census Tracts were lower than the city levels in 1970. 65.4� of a11 families earned less than $10,000 (Saint Paul 45.9%) and 263'/a earned less than $5,000 (Saint Paul 15.5�) . Nearly 117, had incanes below the federal poverty level (defined here on a scale including a level of $3,743 annual incame for a non-faraa family of four) . A relocation survey of the entire area, taken in October, 1974, verified the fact that income levels are significantly below the city average. Of the 180 families surveyed, 98 (54.4%) were apparently below the , income limits established for public housing occupancy (these limits, based on family size, range from $5,530 for individuals to $13,910 for a family of ten or more) . Among individuals, 105 of 160 (65.6�) were in this low-incane category. Unemployment statistics from the census show that the area experienced high rates in 1970. In Tract 327, lO.Ox of males over 16 and 5.7� of females over 16 were unemployed; in Tract 328, �5.09'0 of males and 4.8% of females were not working. City-wide rates for thia time were 3.67, for males and 3.5� for females. - 17 - � � � � � � � � � � � � � � � C. Mobility The overall populati�n decline is reflected in figures on the nwnber of people moving in the last £ive years. Only 41.17'e of those in tract 328 lived in the same dwelling in 1970 as they did five years earlier compared with 56.7% for Saint Paul and even higher rates for many surrounding communities. Less than 20% of the labor force works in downtown Saint Paul, most working in other parts of the city. Fewer workers have regular access to a car than is true for the rest of the city, more taking the bus or walking to work. 42� in tract 328 live within walkin� distance of their jobs. - 18 - � � � � � � � � � � � � � � � HEALTH, SAFETY ANID GENERAL WELFARE CONDITIONS A. Crime and Fire For administrative purposes the Police Department divides the city inta "grids" approximately one-half mile square in size and then groups several grids for canparison between neighborhoods. The Study Area is split by three grids, all lying in differeat "neighborhoods." Crime statistics for 1973 show that the area has higher incident rates for nearly all types of crime than for the city as a whole. The grid west of Rice Street was 45.67', higher in terms of serious "barometer" crimes and the portion east of Rice was 149.9x higher, repre�enting nearly one serious crime for every five residents, within one year. More than double the city rates were such crimes as robbery, aggravated assault, suto theft, "other" assaults, fraud, disorderly conduct and fights. Most of these rates, for the grids as well as the city, are about the sam� or down slightly from 1972 and 1971. There were 15 fires in 1973 in the two grids, down from 19 in 1972 and 21 in 1971. The ratio of fires to the population is nearly the same as for the city as a whole. B. Public Assistance The last Ramsey County Welfare Department comprehensive report on public assistance programs was written in August of 1972. The data here is grouped only in large neighborhoods, making it impossible to determine assistance levels in the relevant areas. However, information gathered in a relocation survey of the area indicates that there is a disproportionate number of fatherless families. Most of such families are headed by a waaaa under age 25; income is derived almost solely from monthly Aid to Families with Dependent Children (AFDC) payments. The largest concentration of these household.s is found three blocks immediately east of xice Street. - 19 - � � � � � � � � � � � � � � � One principal resource in any planning endeavor is to explore the thoughts, concerns and opinions of the residents of the community. This can be accomplished in two very important ways. The first, a aurvey to assess the "people" make-up of the community--family size, number of hane owners, tenants, elderly, non- elderly, number of bus�inesses--both retail and commercial, etc. This type of information supple�ents the physical condition data by providing a "people profile"--another dimension to the character of the cam�unity. As part of this study, approximately 340 households and approximately 95 businesses were inter- viewed in an effort to determine attitudes, and specifically to determine the impact upon residents and business of displacea�ent which might occur through imple�ntation of the plan. Such data also is valuable in identifying avail- ability of relocation resources for proposed displacees. The aecond resource is the creation of a vehicle for citizen action or citfzen participation to provide imput into proposed actiona and programs formulated for the area. This citizen involvement culminated in the form of a citizens' organization called The Capitol Area Citizens in the area representing home owners, tenants, businesses and institutiona. Survey: Residential The Study Area as a whole reflects a relatively high proportion of tenant- occupied structures. Approximately 74% (250) of all potential displacees occupy rental units. The remaining 26% (90) are owners residing in single and multi-family buildings. Of the 230 occupants surveyed, 153 (457.) are either elderly or handicapped. An estimated 86� (131) of all elderly (or handicapped) occupants are low income, including 22 of the 30 such owner- occupants and l0y of 123 such tenants. Of the 250 tenants, 86% (214) will require 0, 1 or 2-bedroom units. The remaining 147a (36) will need larger units, including low or moderate- income families requiring 21 3-bedroam units, 9 4-bedroan units and 2 5-bedroom units. Sane significant patterns are evident which may be used as a basis for analysis. Substantially all of the elderly hane owners own their property free and clear of indebtedness and could therefore repurchase successfully through the use of their relocation benefits. Past experience has indi- cated that perhaps 757. of those in this category will do so. Those wtn - 20 - � � � � � � � � � � � � � � � do not wish to continue as home owners will have a more than adequate choice of alternative housing through the Public Housing Program and other subsidy programs. 1�ao new hi-rise buildings will be completed in the next 18 months and at least six existing senior-citizen buildings are within a reasonable distance from the neighborhood. Families requiring larger units tend to be renters of primarily low-income, with several on some form of public assistance. These families would pre- sent the greatest potential difficulty in relocating. However, the newly created "Section 8" Housing Assistance Program is expected to provide con- siderable help in resolving the housing needs of such families. Substan- tial relocation benefits will also be available to assist them in obtain- ing private market housing. The 81 low-income, elderly individuals who are renters will have adequate housing opportunities in the hi-rise buildings as well as through the . "leased housing" program. Survey: Non-Residential The 95 businesses located in the survey area consisted primarily of neigh- borhood-oriented small businesseso The majority consisted of small retail and service businesses. Of those interviewed, only 4 businesses indicated they would discontinue. Half of the businesses expressed a desire to remain in the area. The remaining 50y. had no concrete plans. Most of the businesses were enthusiastic about the area's potential for continuation as a comsnercial district. There was no clear-cut preference expressed by those interviewed as to the . desirability of strip development along Rice Street versus a shopping center. Most of the businesses expressed concern should an outside developer come in since they would no longer own their property. However, the concensus - 21 - � � � � � � � � � � � � � � � among the owners was that they wanted to be able to be a part of the devel- opment. All busi�esses expressed concern with business while redevelopment is taking place especially if their property is acquired and no sites are immediately available for redevelopment. Most businesses desiring to remain in the area could not afford to discontinue operation pending availability of a building site. Citizen Imrolvement papitol Area Citizens On August 1, 1974 a general conanunity informational meeting was held at the local Christ Lutheran Church to alert the residents and business people of the area in which the Housing Authority would be conducting a planni�g study for the State of Minnesota. The meeting was attended by 125 people. At the meeting, those present were informed that there would be follow-up block meetings throughout the area in the near future. The block meetfngs were planned in an attempt to reach more local residents, be able to answer more specific questions in a smaller group setting and begin the develop�nt of a citizens' organfzation through block r�presentat3ves. On August 9, 1974 the first block meeting, �n a �erie� of eleven, was held at the Scheffer Community Center for block 55 in the Rice-Marion Area. The last of these eleven block meetings was held on September 5, 1974. Some of these meetings were held in private homes in the blocks, and some were held in public buildings in the area. Attendance ranged from as low as four residents to as many as fifteen people in one block. The general conoern fn sast af ttse �eeetings was that if and when a redevelopment pro- gra� takes plsce that people be treated fairly in the acquisition and r�10- cation process. Some people did not want to lose their home and move out of the area, h�,at most people seemed to realize that many parts of the area were becoming very deteriorated and sanething would have to take place to stop the rapidly deteriorating conditions. It's fairly safe to say that owners are urilling to give up their homes, if they do not have to suffer financial�y. At each of these block meetings, residents were asked to - 22 - � � � � � � � � � � � � � � � choose someone in the group to act as a future block representative and an alternate representative. The block representatives who were choaen are as follows: Mr. F. Wo Kriel 181 Como Avenue Mr. James Hipkins 180 LaFond Avenue Gordon Davis 568 Rice Street Jessie Greensley 595 Park Street Gilbert Sanchez 536 Rice Street Mrs. John Hernandez 119 Sherburne Avenue John Hillman 629 Capitol Blvd. Joe Renteria, Jr. 625 Capitol Blvd. Sam Pranke 82 Winter Street � Helen Johnston 31 Winter Street Harold Anderson 11 Como Avenue Richard Maloney 598 Capitol Blvd. Marie Brant 699 Jackson Street Alice West 792 Capitol Heights Pearl Bauman 740 Capitol Heights Karlis Liepires 760 Capitol Heights Mr. � Mrs. Len Senty 190 Edmund Avenue Mr. L. M. Bergum 153 Charles Avenue Mrs. Helmer Johnson 530 Marion Street Mrs. Richard Cranston 159 Sherburne Avenue Business Representatives Mr. � Mrs. R. A. Parisesu 555 Rice Street Lloyd Bergum 545 Rice Street Bob Weik 616 Rice Street Institutional Representatives Pastor Winfield Johnson Christ Lutheran Church George Mills Bethesda Hospital Mr. Airy Representatives Herb Svenson Capitol Community Service Valerie M. Otis 630 Linden (C.A.A.N.) Selma Keup 137 Mr. Airy The first meeting of the citizen representatives was held on September 18, 1974 at Christ Lutheran Church. Pastor Johnson had offered the use of the Church for community meetings and the group decided to meet there regularly. At the first meeting officers were elected for the new group. Those elected were: Chairman Lloyd Bergum 545 Rice Street Vice Chairman John Hillman 629 Capitol Blvd. Secretary-Treasurer Pearl Bauman 740 Capitol Heights � ,, - 23 - � � � � � � � � � � � � � � � The second meeting of the newly organized group was held on October 1, 1974. At this meeting an organizational name was chosen by the group. It was decided that their new name would be Capitol Area Citizens (CAC) . The remainder of the meeting was spent in going over general building condition materials on a block by block basis. Small maps of the area were given to each group member so they could record the information on their a,rn map. Copies of the State's general objectives and goals for the Capitol Area were also given to each representative for their reading and study before the next meeting. In light of the tight time schedule for input into the planning study of the Housing Authority, the group decided to meet weekly until the deadline for materialswas reached. During the next five weeks the group met regularly once a week to thor- oughly discuss their priorities and recommendations on the future of all blocks in the Capitol area. The group passed the following motions as recommendations for the State's consideration; 1. That the State should designate the Saint Paul Housing Authorfty to administer a program of acquisition and relocation in any future program of redevelopment in the Capitol area. 2. Set up the following priorities in property acquisition and relocation: a. Elderly families and families with school children as willing sellers. b. Substandard, vacant, vandalized buildings; by tondemnation if necessary. c. Projected redevelopment areas by the State or private business. 3. Recoamnend that displaced busineas people in the Capitol area have the opportunity to buy new business property, if a concentrated commercial area is developed. - 24 - � � � � � � � � � � � � � � � 4. Recommend that an area bounded by Arch-Pennsylvania and Como Avenues, Rice Street and Capitol Heights on the northern edge of the Capitol Area, remain essentially as is with single- family and duplex structures. 5. Recommend that the block bounded by Lafond Avenue, Rice Street and Como Avenue be developed as previously planned in the Thomas- Dale Neighborhood Development Program. 6. Recommend to develop the block between Valley, Jackson Street, University Avenue and Capitol Heights into town houses. 7. Recommend that a two-block area bound�d by Como and Sherburne Avenues, Rice and Park Streets be developed into a planned �nit Development Area by the Minnesota Association of Professional Engineers and Rudon, Inc. , according to State regulations and zoning. 8. Recommend that a block bounded by Edmund and Charles Avenues, Marion and Rice Streets be developed as previously planned in the Thoanas-Dale Neighborhood Dsvelopment Program. 9. Recommend that a three-block area bounded by Winter Street, Capitol Heights, Como Avenue and Rice Street remain basically residential, with the general concept of a buffer zone between between residential and institutional use. 10. Recommend that a three-block area bounded by Charles Avenue, Rice Street, the alley line between University and Aurora Avenues, and Marion Street be designated as a new camnercial complex in the redevelopment area of Rice-Marion. 11. Recommend that a two-block area bounded by Arch-Pennsylvania Avenue, Jackson Street, Valley and Capitol Heights be redeveloped residential with a variance for a small conmaercial retail area in either of the two blocks. - 25 - � � � � � � � � r � � � � � � 12. Reco�aend that the State be urged to develop the block bounded by Como and Charles Avenues, Capitol Heights and Cedar Street as soon as possible into a park area as shown in the Master Plan. 13. Recom�end that if coamnercial development should take place in a three-block area bounded by Winter Street, Park Street, Sherburne Avenue and Rice Street, local business people will have priority for development or occupancy. 14. Recommend to develop ample parking facilities in the area for all present and future needed purposes. During the Organization's meeting on October 22, 1974, the group became rather deeply involved in a discussion concerning the business interest in the area. It was agreed that a special meeting should be set up for busi- ness people in the area, This meeting was set for Wedrtesday, October 23, 1974 and a notice was delivered to all businesses in the area. During the course of the meeting there was considerable concern about fair and equitable treatment in the process of acquisition and re�location. The following recommaendations were discussed and passed at this meeting; Recaromend that each local business should have the first option to own their own property in a new commercial area to be developed. Reco�end that the State should follaw the guidelines of the Small Business Administration (SBA) in loaning money to the business displaced in the area at the percentage rate in effect in the SBA at that time. ltecouenend that the Federal HUD guidelines be used by the Housing and Redevelopment Authority in acquisition and relocation of busi- nesses in the Capitol area. - 26 - '� � � � � � � � � � � � � � � � At the Capitol Area Citizens Meeting of October 29, 1974, it was agreed . that the group should call a general neighborhood meeting of all rQsidents in the area. At this meeting the new neighborhood organization would report on the work of the group over the past eight weeks. This meeting was held as planned on Monday, November 4, 1974, wiCh sixty local residents attending. Chairman Lloyd Bergum conducted the meeting. The total list of priorities and reca�mendations to the State of Minnesota was read and discussed. After some discussion, the Capitol Area Citizens' recommenda- tions were made by the neighborhood group: Recommend that for the houses that are not substandard a comparable house be made available or money be made available to purchase same; apart from the guidelines of the HRA. Recomonend that mass clearance be kept to a minimum. Havin$ completed their first task as a comm�unity organization, the Capitol Area Citizens are presently on call for their next meeting, which will occur upon completion of the Housing Authority's draft copy of their plan- ning study for the State of Minnesota. The newly organized neighborhood organization plans to remain active through the planned redevelopment pro- cess of the Capitol Area. The survey information and recoaimendations brought forth by the Capitol Area Citizens have been incorporated in the evaluation of implementation alterna- tives for the Comprehensive Plan. The Redevelopment Plan developed within this report is consistent with the aforementioned recoamnendations with the following exception and note: Opp�rtunities to develop a park-open space area .that would also provide an integral link within a pedestrian walkway is more aprropriate in an area bounded by Sherburne and University Avenues, Caritol Heights and Cedar Street. Such an area takes advantage of a number of good vistas toward the Capitol, Dowatown Saint Paul and the Mississippi Valley. - 27 - � � � ' � � � � � � � � � � � With respect to recominendation 11. , the northern block is recommended for inclusion in a conservation-restoration area. However, any redevelopment envisioned for the remaining areas would be within a Planned Unit Development concept where such a cammercial use would be permitted. - 28 - � � � � � � � � � � � � � � � ELEMENf S MARKET POTENTIAL On November 9, 1974, Econaraic Re�earch Corporation responded to various questions put forth regarding the market for various uses in the Capitol Area Study boundary. In addiefon, quest�ons were asked regarding the conditions necessary to maximize the market potential and the effect of various potential development possibilities or other potential uses. The questions relate to separate blocks and areas within the Study Area. The market potential for various developments was reported in an earlier docu- ment dated October 23, 1973 which was used as a basis for the market conclusions reported herein. 1. Commercial Development North of University The two blocks north of University Avenue between Rice and Marion Streeta have been designated for cotrmercial use. In our prior report, we reported market support for office and motel development and for some ancillary retail uses. As indicated, there wauld be a market for 100-150 motel units. There would be a market for up to 120,000 square feet of office space assuring a staged development of 25,000-35,000 square feet per phase. A larger amount of space could be included in a phase if it were developed with a lead tenant such as a bank. Assuming three-story buildings, the office develop- ment could use up to 40,000 square feet of land in addition to the land needed for parking. Ancillary retail could be included within either an office or motel development or as a small separat� develop- ment. The type of parking, whether surface, ramp or underground, will have little effect on the market for office space in the area or on the volwne of business attracted to the motel. - 29 - � � � � � � � � � � � � � � � The type of parking planned, however, will affect the cost of the developanent and thus will affect the marketability of the property developers, Underground or ramp parking is more expensive to construct and maintain than surface parking except when land is very expensive. The amount of write-dowa in the cost of land which can be pravided a developer can affect the size of structure aad type of parking which he will develop. Where the land value is justifiably very high, there is an incentive to build underground or ramp parking. A write•dawn, and suffi- cient land to provide surface parking, encourages development of that type of parking. In regard to the potential office and motel development north of University it is possible that substantial write-downs in]and cost, in additinn, to permitting surface parking may be necessary to attract a developer, Increasing construction costs, the perceived desirability of • the area, and the deterioration of existing businesses aloag University Avenue all discourage potential developers. Increasing the potential costs by requiring underground or ramp parking could make a difference in the ability to attract a qualified developer. In this regard, the cost to the developer of providing ramp or underground parking is normally greater than a potential land cost write-down. Many of the present structures on the blocks near the proposed development are deteriorated. To the extent the deteriorated structures and marginal busineases are near the proposed sites, development will be discouraged. On the other hand, the addition of new attractive structures, such as the new Home Federal Savings and Loan office, impro�ves the ecrvironment fnr adjacent uses. In regard to the two blocks north of University, the condi- tion of the structures on the south side will influence its image. However, if most of the substandard commercial structures east of Marion are cleared, a new em�ironment. could be a�eated for new development. - 30 - � � � � � � � � � � � � � � � In suma�ary, there is market support for office and motel and ancillary retail uses on the two blocks between Rice and Marion north of University. The decision as to parking and land cost write-down should depend on what is necessary to attract a developer. The condition of structures on property across from the proposed developaient affects the i�age of the site and its attractivn to a potential developer. 2: Commercial Uses South of University The block between Rice and Marion, south of University, is now devoted to co�nercial use. Ia general, the south half of the block has some newer buildings and is not in need of redevelopment. The north half of the block, however, presently has industrial uses and is in need of redevelop- ment. Since this block is across from the proposed new com�ercial develop- ment and can be seen by most persons approaching the new development, its present condition could adversely affect the potential for the new uses. The half block, which is available for development has the wrong shape and is too small for ma�or office or motel uses. Small offices and ancillary _ retail are uses which should be considered for this block. The development of a new bank building on the west end of the block should have a positive effect on the redevelopment of this block. Aowever, greater support for the redevelopment would occur if the Swmmit Bank could be interested in either owning or being the major tenant of a major office complex north of University. 3. Rice-Marion Corridor Residential Develoament The blocks between Rice and Marion, Charlea and Arch Pennsylvania are pre- sently being planned for residential development. A proposal for the development of a 107-unit market rate development on blocks 87 and 56 has been submitted and is being processed. The condition of the structures on blocks 55 and 90, across the street, will affect the market support for the proposed development. The success of the project, presently in pro- cess, will also affect the attractiveness of adjoining sites to potential developers. If the present project attains and holds high occupancy levels, it will encourage further development. If the present project has difficulty - 31 - � � � � � � � � � � � � � � � attaining high occupancy, asswning reasonable reatal ratea, it will be difficult to interest other developers in the area. The triangular Block 55 aorth of Cano is not presently an attractive resi- dential site. The shape and size of the block would discourage development. It has heavy traffic on two of the three streets surrounding it and because of the diagonal, the heavy traffic, in effect, would be on three sides of any potential development. Closing Caao and directing the traffic onto Arch-Pennsylvania Avenue would pernnit this block to be used as an addition to the presently planned development south of Camo and would permit develop- ments on Blocks 55, 56 and 87 to be located farther away fran the major traffic routes. The potential market is primarily in the lowest market-rate rental ranges. Development on the proposed site would have a convenience advantage which would help nullify the adverse effect of the area's perceived t�aaage. They would canpete with the many developments lis ted in the prior report north along Rice Street and Interstate 35-E. These developments provide standard units with few amenities and attract young working persons and some older people. The large number of these units s�hich have been developed in the north side of St. Paul, West St. Paul and Sauth Minaeapolis are evidence of the market potential for these types of units. For exaanple, there are over 4,000 such units located in near South Minneapolis, moat of which have high occupancy rates. It is, however, doubtful in view of the surrounding uses and the characteristics of the blocks that there would be a market for mor� expensive units. To achieve the lower rental rates necessary to attract the market, the developer will probably have to construct three-story walk-up buildings with surface parking. However, relatively low rental rates have also been achieved in some pre-cast concrete structures, s ane of which have underground parking and have more than three stories. - 32 - � � � � � � � � � � � � � � � The need to provide aurface parking and the need for green spaces affects the densities which can be achieved. The number and type of amenities which can be provided will depend upon the size of the possible developments. Amenities such as party roans, awinnning pools, saunas and recreation rooms are economically feasible only if their cost is spread over a fairly large nwnber of units. Hawever, fe�, if any, of these amenities can be provided in the lower price ranges. The vrite-down in the cost of the land for residential development will make the area more attractive to developers. Aowever, raw land cost in a typical suburban development is normally 5-10 p�rcent of total project costs and is nonaally between $1,000-$1,500 per unit. Assuming a 12 percent constant, the rent required to pay for the land would thus, be only $10•$15 monthly. Thus, providing free land would result in a $10-$15 per month rent advantage aver competing development�paying market rates for land. The conditions of the commercial uses along Rice Street has an adverse effect on the residential market potential on either side of Rice Street. If those usea remain, many of the units would face the rear of the buildings which are very unattractive. The key blocks, in regard to commercial development, are Che two blocks north of University. If development could get started there it would have a positive affect on both the can�nercial development south of University and the residential uses to the north. Redevelop�ent of the south side of , University, however, would h,ave less impact on the re�aiader of the area. In regard to residential uaes, the development of any of the blocks along Rice Street will, assumiag it attains reasonable accuracy, have a positive effect on the development potential on the other blocks. 4. Area II Residential Development The problems and poteatials in Area II (a two-block area between Rice and Pa=k Streets, Como and Sherburne Avenues) is similar to that of the blocks - 33 - r � � ■� � � � � � � � � � � � between Rice and Marion. Being farther from the main freeway access routes it is less desirable as a site for a motel or ancillary r�tail use. Being located near the new medical office building aad having comrenience to the Capitol it would, however, be a good office site, although not as good for general office uses as the blocks between Rice and Marion. The residential potential is similar to that west of Rice althot�gh perhaps somewhat higher densities would be appropriate here, recognizing of course the negative effect existing residential use on the north side of Caao will have on such a development. The factors affecting the office and residential development west of Rice are also applicable here. The adverse effect of Rice Street caamoercial uses as well as the industrial use in this area would affect the marketability of any development. In general, the sites between Rice and Marion would appear to be more attrac- tive as locationa for the firat phases of redevelopment. However, if a developer is interested in Area II, development there would also have a positive effect on the remainder of fihe project area. 5. Area III Residential Area III, an area along Winter Street from Rice to Jackson Streets, is pri- marily single-family residences. With exceptions of the block along Rice, which perhaps should be considered in Area II, this area is not likely to attract any new development until redevelopment of other blocks are c�npleted. Since it abuts on the other areas only on one end, it would not have a great effect on the develop�ment potential in the other areas. The conservation- restoration of the area would nullify any possible adverse effect of this housing on other planned developa�ents. 6. Area IV Residential-Caamercial Development Area IV, an area bounded by Como and University Avenues, Capitol Heights and Jackson Street, is located on the east side of the study area below the State parking lots. Shape of the blocks and st�ep topography make this site - 34 - � � � ■� � � r +�■� � � � � � � � relatively unattractive for redevelopment. The south end of this area would be suitable for small office use or expansion of the motel. There may, in the future, be a market for some small apartment or rental townhouses in this area. Hoaever, the other areas previously discussed are more attractive for residential developonent that this narrow area located on a steep slope between a busy street and State parking lots. Being s�par- ated from the other areas by State and hoapital uses, the development or lack thereof in this area would not affect the other developmnnts. 7. S� Based upon the foregoing analqsis of market, po�ential for various ases within the context of existing conditions (i.e., co�ercial atrip along Rice, Como Avenue diagonal street, etc.), the implementation plan presented in succaed- ing pages is oriented to mitigating. the � adverae market influencea of exist- ins conditions. Thus, elimination of atrip commerciel along Rice should en- hance the sarket for higher quality housing in the Rice Marion erea as well as the area between Rice and Bethesda Hospital. Simi2ar benefita ahould result from the planned vacation of Como Avenue, aa well as the proposal for a concentrated rehabilitation effort in the area along Winter Street. Staging of implementation has been proposed to be in accordance with talcing maximum. advantage of the immediate market potential and to enhance the market attractive- ness of land produced by later-stage activities. - 35 - iii /� �� //��i�i�,�►,��i��i��%i�ii�� i� � � I'% / �/ o� �/ i � � i i � i i � / �� / / u� �i �� % % . � .� •, ,: / ' / / t: / ��0. �� •� ♦��i��♦ ♦*r ♦� ��♦ ♦• • �•�:�•�.�� i`00,:��O�'.�.�.� ♦ • . .��. ♦��....�.,.�.`.�. .i.��i�'•��.,♦ i�.�. ♦.i�♦ • � \ ,��,,:'��1•`��i 1�•��"%�:�1��i�:r1��i��'��,��,•��V�i�41�• ♦�•♦ ♦i�• ::��!:.••;,�.'��.`��:.'O�.`�i�1�!.�i��i.i.�1:��Q��i•�!��%�!;��•�1��',��'•=��,��i�� /////// !��:�:��'�`�. s 's' �.7 ♦ •�. r �`.`:• i O�. /%///%%/ lJJ' �- � •.. 'r Q`�fjP !�.!y �i�:.- � \ /�•`'"•,'.�.�;�'l�►��1�'�^S 1 �7 �'•V1+= �;:o.•.•o..��.•.•.�.•,•;.. � � • .`.��:�E r ��' � ••.�.�:`,�i,��'�:,��1'�%'�•'�;•:�•��J'��:'i'��:�'�� :�li:�Si:��•i: �+�'�i��s:d. � '��. ♦�♦ ♦�♦ �.•�.�� ,"� r�C.��' ♦.��.��1• ♦��j`�i�`�� ♦�♦ •♦ ♦ ♦ �� . •�� ♦ .�'��.��•:�� •��:•�'��i i��i��;`��%.�� i��.�. ��~��. ��•�•, V��.��,%��.��,��1��4!" �/ ♦��.��'♦.,. �� . �� J�� ♦. ♦ ♦��,(.I��♦ ♦♦ � � I . �� - '� I� ��/ %/ � v� `+� % �� i _ G • - . , �� 11 �1 . �11 = � �� =F . : � � � � t�`�'�'�r�— '�,�.�� 1 =� �� - / �N ' �� — a � I � 1�1 ' � � � �� _ �i� „��y�i/ � � �_"�� % � �`; �- �I ! o � _ � ' ii� �: � �� •� /� ► // . ► � r � �� . � � � w � � � � � � � � � �■■ � VISUAL ANALYSIS The State Capitol complex and ad�acent environs form an overall precinct or district within the metropolitan area, which hae a significant viaual impact on the public. The nature of activities, the architectura� and open space character, the arrange�nt of facilities and the setting all combine to convey a symbolic statesent about the institution of state government. It is thus important that thie precinct have a special sense of identity and a legible, imageable visual structure throughout. 1'he area to the south of the study area, consisting of the mall and surrounding state gonermeat buildings, has a basically strong and eaeilq perceived visual character. However, the study area, north of the Capitol building, is a mixture of several strong and many weak visual characteristica. In this analqsis, emphasis is given to the broad visual structure of the aorth area and not particularlq to detailed issnes of individual building design. An attempt is �ade to identify those aseets and liabilities which the public at large relatea to in viaual terms. These include the pattern of perceivable sub-areas, i�ageability of the circulation syateme, defined edges and spacea, landmarks, visnal foci (nodes) views and vistas. Aasets The north area has several elementa of visual strength and significance. T'he Capitol building, with its prominent dome, is a �aajor landmark which is seen from afar along the major approaches to the Capitol area - particularly slong Rice Street and IIniversity Avenue. The Capitol building al8o has a dramatic effect in its immediate ennirona. Its bulk, scale, profile, facades and excellent siting create a po�rerful and me�orable syntb�l of state govertmnent. Other major, but lesser landaarks are the Christ- Lutheran Church and Bethesda Hospital. The latter becomes a landmark because of its aheer bulk and its prominent topographical siting. The Betheada coaplex is one of tWO distinct and identifiable aubdiatricts, or precincts, within the liorth Capitol Area. Again,the sizt of the buildinga, their close relationship around a �vell-defined court space, the topographical setting and the axial relationship with the Capitol building all contribute to - 36 - � � � � � � � � � � � � � � � this sense of a definable aub-area which people can relate to in their visusl image of the area. The other sub-area of significance is the corridor of existing reaidential along Pennsylvania Avenue. This area has a weaker visual image; however, there are enough elementa of continuity and defini- tion to give it an identifiable visual image. Dramatic topograph� is a prime visual asset in the eastern aection of the Study Area. Steeply banked hills provide a brief but well•defined edge to the Capitol area. In additioa, Jackson 3treet Which passes aloag the lower elevation of this edge beco�es an excellent visual entry to the downtown. From the highest point of the knoll above Jackson Street, there are excellent views to the aear envirocunent of the Capitol and mall as well as longer views to the downtown and Cathedral. Liabilities A critical negative factor in the visual structure of the North Capitol Area is the lack of a sense of a definable-imageable-precinct. For example, elements definiag the edge of the district are geaerally lacking. There are the beginnings of edges, such as Pennsylvania Avenue along the north; however, there ae negative features such as the lack of reinforcing elements resulting in the diminishing of the edge's potential. A key aspect to the definition of the area fr� without is the generally poor quality of surrounding enviroinnent. To the east, the Mount Airy Hdusing Development, while serving an earlier need, requires restudy and redevelopment to pravide the kind of defined and organized development which is more appro- priate to its excellent site potential and to its close proximity to the State Capitol camplex. To the north, along Pennsylvania Avenue, a deterior- ating and unbuffered industrial use lies along the north side. Along the other side are raws of single-family houses, again unbuffered from the road, which require rehabilitation treatment. On the western perimeter, across Marion Street, a physically deteriorating residential area exists, further detracting from the visual image of the North Capitol Area. - 37 - � � � � � � � � � � � � � � � Within the Study Area, there are three large predominantlq residential areas of negative visual impact. One is a continuoua narrow band along Capitol Heights and Como Avenue. The second is defined by University Avenue, Park Street, Como Avenue and Rice Street, and the third is defined by University Avenue, Rice Street, Como Avenue and Marion Street. Both areas are charac- terized by deteriorating physical quality and incompatible mixed uses. All of these factors result in a blighted viaual environment close to the Capitol. Within the center of the Study Area, directly north of the Capitol, is an open expaase of land largely used for parking. B�cause of the lack of physical buildup and development of open space, this area has an undefined visual quality. The large areas of parkfng further reinforces the weak visual image. Also the extreme amount of openess on this side of the Capitol tenda, with the �all to the south, to result in an overabundance of open area with resulting loss of human scale and visual orientation. The north area could be treated as a much more compact, intensively built-up district. The street environment is of great visual significance, as is the initial and primary means by which the public enters and experiences an area. In the North Capitol Area, the major entrances ane R�ce Street and University Avenue. The entries at all four points are weak in visual terma. At the Rice/Pennsyl- vania, University/Marion and University/Jackson entries there are no real elements which give a sense of arrival to this important institutional area. Ia fact, the entry points at the north and west are visually cluttered and deteriorated in quality. The major south entry point at the John Ireland/ Aurora Street/University Avenue area has a good visual environment; hawever, the configuration of streets and intersections in this area results in a con- fusing sense of orientation. Within the North Capitol Area, the street environment along Rice Street between Arch-Pennsylvania and University Avenue is particularly bad and unsuitable to the Capitol envirornnent. The type of uses and the incompatibility of uses and deterioration results in a tawdry, garrish and visually chaotic street scene. The intersection of Rice Street and University Avenue is an important visual focus of ma3or arterfes; however, its potential is not real- ized in terms of physical buildup and spatial definition. - 38 - � � � � � � � � � � � � � � � There is little sense of visual or functional linkage betWeen sub-areas within the overall Study Area. Capitol Boulevard, extending between the Capitol building and the Bethesda canplex begins to auggeat a visual relation- ship only because each is a daainant phyeical element at terminations of the axis. The further development of the axial corridor is needed to reinforce the visual relationship between two building massea. Also, the Study Area, while extending primarily in an east-west direction, has virtually no sense of linkage from the knoll to the Rice Street area. In summation, there are several areas of strong visual image. However, these exist in isolation and do not establish an overall pattern. What is needed is the development of a broad visual framework for the Study Area which relates to and reinforces the overall identity aad imageabiltty of the entire Capitol Area. These concerns and the development of a visual structure for the area is introduced and explored within the Plannin� and Design Framework. -3 9 - � � � � � � � � � � � � � � � �o 0 0 C5 n i U 7n� °fl � ��0 Z--�r� _' o❑° p� � 11� � � o Q � � � ° ��° ❑�C7 0 �-- — ao ° ° o° , �� ' c�� o � �� o n ❑ 1 � p p o I a v o °� � ; � a o ° I � � . � � �� o a � �I a ° ❑ I o m q � o .o - ��«��E rF '��x-++7z'^�'^�-"� .�t e�7 ��t"a�`�r;2 .�l��..'�t' , . � .'� �. �k� ,�Y . / : , , t s � 7 , , . , ;: ., ; :. .: ry I , k .� .�� , ' x s P �F� x / I ,� -::a°,.., '� ;, � � � .,.��;.. � I i �� ;`> e , ; � ...� � ' ' �� 3�� ,A � �. �� . . . .. 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' • • • ..�...., : � �: �a� � � ' . 3 �� s� s�F. : �C'� ,�� DC�.� � � F � �� ...: `�Y�`' 4,. �.Y� � .. . .�y �„�-j'' :3 .... � `� � > £ "� � � F� .a�..� � .. ., : � :'h.� ;�.. �E� '?, 3:' '„�.��. 99l� � �i�:<c :: ,�..7�;::?;pr".�':� � :�� ' `� .1�. e:,;,:'..��?A�.. . . .. �:'>w^y', � • 3s;3� A`� � � r. �:i't�s;3;�;.;s. ,:.. .�.�f ;� I .. „:i c:.: � .. „ 3� � ^ ��I�{ ,�^' •.'�• 'l`'.V�`� ��I .. ;; <..' .:�`� . , 1 1�� :. �.a;� �� I[�� h �b � �t;�f,Y � {��6�,� �, � o r �.:;;;.,.: s� �Z..,�:.��" � ° o a F'�y �y 3�a� �y, "'S' { :r.'z�h�:,s,. kr��r � ; �� s�� . � ❑ 4� �, • `3�, '�.��s,<, ,��?#5. �i��Y,i � .�v '".,�,�''�.�`�,'.''C,�,.�,,��',n:' siss.x;... � v '$�s,n;€i'i '�s e:.,';,II�..;:<.;�?�Y:> i v '`<.... :::.bq.m j.Y�LYc�:'��'<�a ."� r'F':% �"f.�; )3?;::i ��... ..�i3?i:,;i .:::a�u...�.�::,..�.i" �:y¢:: ,F;,s �.�y� �L�%':'�' j "::�r� 3 s.�:��.. ::�;"�':;'?: .� �c ..:.r)i; � .:'F; ��.R.:<:,�c<i��'• I ";,,�. :..3"m >�'z�` ::.:.'i."'�"°�:f<: ��v'�?;,::,;�h �s's�i'£g..�aR,..:::�'s'i.'��^�'«�':@ O .,,. ::::.�. �'� ..z:�"" `. ::7.: . �. ..�'��v`?�.��::3Er ��...�.` ''�u .q'..:..<. ....:..... �' L1 � 8 � � � � � rr � � � rr � � � _ � ��\> � � � � � � � � � � � � � � � TREATMENT AREAS As indicated previously, th� plenning proress requires an aesessment of the existing stste of co�unity resources. It waa noted that these resources collectively constitute a sense of conraunity--the people and the manner in which their land is utilized. For the purpose of evaluation it was necessary to separately analyze a number of activitiea which collectively make up the character of the community. This evaluation asa�ssed the sign- ificance and degree of influence each. activity generated upon the whole. It is necessary then to now view theae activities again collectively to assess their combined significance so as to determine the appropriate course of action for each area with similar collective characteristics. An area of Ma or LnpsCt tends to be an area of severe deterioration and blight, mixed and incompatible uses, heavy traffic volumes, negatfve visual impacts, and a myriad of urban diseconomies. Bxisting conditions within this area and its perceived character indicate this district to be of major impact upon the community. An area of well-defined residential character along both sides of Winter Street and including the northeastern block bounded by Capitol H�eights and Jackson Street praapt concern that this enclave be maintained as a Conser- ._.......... vation-Restoration area. Building conditions iadicate the structures within the area are sound to minor deficient with minimal scattered sub- standardness. With the exception of Park Street extending to Arch-Pennsylvania, streets are local collectors and minimal traffic volumes are present. The topography along Como Avenue and the existence of Arch-Pennsylvania Avenue tend to define dramatic boundaries to the north and south requiring appropriate treatment to enhance and preserve the character of this area. A major portion of the Study Area is made up of gavernmental and inatitutional uses. By.their very nature and character, it is appropriate to distinguish - 40 - � � � � � � � � � � � � � � � this area as the Governmental-Institutional Precinct. While specific reco�nendations for thia area are not within the scope of this report, it is apparent that the magnitude of activities and intensity of use both affect and are affected by those activities within the other treatment ar�as defined above. It is within thia context that the Governmental- Inatitutional Precinct need be addreased in the creation of a development plan which accommodates the full potential of the co�unity. Although the fourth area is designated for a medium residential snd open space use within the Comprehensive Plan, a number of concerns and consider- ations prompt an appropriate designation of this area as Future. Action. i Because of the topography, location, considerations for a marketable site atd the uncertainities of contiguous area development, it beco�s apparent , that further analysis is necessary for the development of a viable implementa- tion alternative, , - 41 - � � � � � � � � � � � � � � � Ba � � � � �� U� q o � ° � ° ° �O � � �g� � �� iOod ° � � G � p O �CJ � � I �p e�' �� I o o •p � �p �{� [� ❑ � 9O � a ■ p � � � � � O � 0 �G Q i � � � ■ � � � � � � � � � O i � � ° - _ :: o ■ _ ' = = ' � �r � � ' �� ' � ' r ■ � � � , � � � � - �' I � � . � - ... r -� - - ! ° T� � � ■i � � ;� T o . � .� �f. � r5t -tJ '�;.�rr.:;•;;i� ,-J � *y:+� � �.c `��►'' i �t�ji'g2;��''�T�'S �r �:y% +��'^.'.�,L�:' �-:. �: "k� $�� t�. t yw��j t: 7 � �;�:'.%S�' "" ;'.,u'�..�, I O �rs k �?' .�. � . . � ❑ :'i" ,�5 s c i�:•;.�� j �:c a';�;s C� ak ��L. 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' ', . :•Ms,• :a: ".s.:::�' ='i"..:...N't•iY. :Y� �+.�uv. .w,-r.t:':�::{.. �:}. :�' ::•''o E:rC'� r,':::. .� y .1;f;S...Y,,:,.: �i�;`. -r:�.r.`.:�r;a^:ri'•' ,��+:AK�^ ��1;?�� _:.?�:a:' ' Yet'.• .J�•S:� ;�?, ..T. L o'��. 'ti;,S•'�'. S Ct .;t �'••�"•,{�� '1 .R:yli :z.� .':i^;:,. .:i`:�.;,. ��i�"i.�t�r Wri,$!r�� 'n.i{,;. .�.Ss�':;;;sW.. • .:. :l�.•'IJ�L.. ^';t• S�T�.. 0 `�,`:�..��M '4:;'�'.:•11( t..{�,«..y�, �;,5; ;°':•.::. ' r t1`%t:'•::r+'�iv .+.�?'� "-f ,aCr••' ♦ •:J J • ,�:: •. .. 'i.i:w(�/�Afn'��t�.y: �7 J'•.. :•+1r ,�'.. .i�!,'�• ».. Z• i+l d' � ..'t'�;i`�.Ki�1i•�yt`{r•i• ��`�,�. • .. '� �:. d#�:;fc�:i�:. �:i.':'i}::.r't.. .. ;..;�.,:..c; •a. �Q. :'3':. i^��:r';:'';.,;,io+ •;H`;'q .x•' Robert Street t°;;;7�['��y``t ;s:`:<<;'.tiut• --- 'I �t.�.�� VN:y��r?ti 'q:'L�'� � . . '.'k.� �' s � t� q Y�N��.Hr�.�i ��•.;` �r =:;'�,�•" ----�-�_ ' ��. � o 0 � 4 � � Da Q • � � \ O 4 � � a � � I � = 11 �:� � :�� o � � � � a � � � �a � � �... � � � � � � � � � � �' �/� � ,► � a � M � � l V � ° �; � � �° n � UQ C� � a � R a � � �"'� � � � a � � � � �D � � Q� C� � '� W � a � � � � � � v � �• � G v � ~• � � o � � � � � � � � � � � � � � � � CAAPC COI�REHENSIVE PLAN The Coonprehensive P1an establishes the framework in which the implea�ntation alternatives wi11 be assessed. Its inclusion as a major element in the land development plan provides the spatial context for proposed land.uses, zoning and major circulation corridors within the area. - 42 - � � � � � � � � � � � � � � � � �a o p� � U '7ti� o� �u��}� �� o�]a o� 4� LIO I � o J � ° o � Oo �� ' o� O � d o � C� o 0 0 0 � o � ❑ � o - a � o � �i � � a o � �a 0 p o ❑ � a o p � o e o o G� C� a p� � a � � ❑ � o Q � .o �Marion-Stre-st �� O . �. � � �� .� ? � � - � � � ��. � � �» � 1 T � � OO i - - � - � �� . : I �� ' - 1 ❑ ' r = _ ;' � � � � — i � �I . ' � ` m ;e, i r—q r _ a L, r T C I N p � � � a, � � � ' - ao � T, < < � � � � � T c , � O � � _ - � � Rice Street -- I��II�@I� ¢ 1 ,.,, . — — � I a a ' � ,�,i II�Il�i I,�; �' �o �°``` a w � > ; I s� e�;�°_`•,: �1\ � ,� � � :e, - � Di � _°=°�^F=�° tlE N N e,�°'^"^ F a � I °°�'°0,°e a m � !I <°°a°°°°° �cW —, _ _ --- d — Park Street � p`5 � I _ li � S I8 I � �e � i��',''„ JI II I III � II�� I ee�e s.�e � , i, � ,e e. ,.e _ ____... _ e'� ,e=e '— Cedar Street <' _ _ — • so �� i;rr I �i�l�� I � ,_�e q;?'' � I I' I —— I � I a�� `o,. --�0a ��\ �� --- � �Robert Street } � ,�� , j ». � y✓ { 3, p�� i� � � - �� , � � � �_ — � � � �� , 4 yi c�� 4 1 , 5 / O O �}+, R ;a, ;� � ,� �- 4 � �,6�� o oa i// i� • n 5 �KS� � o � � � � g � . �. � � � � � $ � � � � � � � �D � � � � � � � � � � � � � � � SPEC i USBS The propoaed land uae plan is designed to create an identifiable precintt in the North Capitol area with characteristics complementary to and com- patfble with the State Capitol complex. GOALS 1. To consolidate compatible land uses into identifiable sub- areas within the overall precinct. 2. To arrange land uses in the appropriate relationshipa with each other. 3. To eatablish land usee which reault in a dyn�ic, active character appropriate to a living and working enniromnent in the Capitol area. 4. To establiah land uses and relationahipa Which respond to mArket feasibility for this area. 5. To maintain eaisting uses which are comple'entarq to and coffipatible with the State Capitol complex. 6. To remove tl�ose uses which are not complementary to or canpatible with the State Capitol complex. 7. To provide expansion for existing inatitutions. 8. To create large parcels for functional areas which are not interrupted by through vehicular traffic. Such traffic should define and not penetrate through functional areas. 9. To allocate parking to below-grade ramp etructures in the most intensively developed areas of the North Capftol complex. DESCRIPTION OF PLAN Residential . In the land use plan, a subatantial amount of space is allocated to existing and new residential uses. T'his reflects the desire for creating an actiwe, dyna�ic character to the area which extenda beyond the nornal �orking day of the nearby institutions. In addition, it reflecta this area's residential potential by its convenient relationship to the State Capitol ce�pleu, da�►n- town, nearby c�ercial facilities and close proximity and accessibility offered by the I-94 freeway. Houeing wonld generally be low-riae (three to six stories) �dium density with the upper range of this densitq being reached in areas - 43 - � � � � � � � � � � � � � � � in close proximity to the State and hospital institutions. The majority of parking spaces--particularly in the higher density range--would be enclosed and preferably below grade. In the area defined by Rfce Street, Edmund Avenue, Marion Street and Arch- Pennsylvania Avenue, the loci range of inedium density (as shown by developer's proposal for a portion of the site) would be maintained over the entire parcel. Como Avenue would be closed thus providing a large expanse of land for redevelopment. A substantial amount of exposed surface parking would be permitted. In the area defined by Rice and Marion Streets, Edmund. and Charles Avenues, medium density is requfred; however, the range would begin to move upward reflecting its location on the edge of the intensively developed area in the North Capitol precinct. While exposed surface parking is permitted, the majority of spaces would be enclosed and preferably below grade under the housing development. In the area defined by Rice Street, Como Avenue, Park Street and Sherburne Avenue, the middle range of inedium density would be continued along Como Avenue,to relate to the previously described sites and existing single- family residential north of Como Avenue. However, as the residential area extends to Sherburne, the upper range of ined'iwn density would be reachcd. This reflects the closer proximity to the State Capitol, Bethesda Hospital and the propoaed commercial concentration at Rice Street and IIniversity Avenue. Some surface parking would be permitted but the majority of spaces, particu- larly in the higher medium-density range should be below grade beneath the housing development. It is proposed that Charles and Sherburne Avenues be closed to realize a continuous, interrupted parcel of land for a totally planned residential development. Some minor retail and related comnercial uses would be permitted in such a development. A narrow one-block-wide corridor of single-family homes, extending along Winter Street between Rice and 3ackson Stree:ts, would be permitted to stay for the foreseeable future. However, this area would have to undergo - 44 - � � � � � � � � � � � � � � � conservation and rehabilitation treatment to asaure its £nture desireability. The remaining one-half block corridor facing Cano Avenue is designated as a buffer zone which defines the edge of the more intensively developed North Capitol precinct. Whiie the buffer zone is primarily intended as a land- scaped open space, some medium-density residential, such as townhouses, wouZd be permitted. In the eastern area of the precinct, between Jackson Street and Capitol Heights, it is proposed that medium density residential be developed. Town- houses, court houses, low-rise walkup apartments or a similar type of housing appropriate to the narrow, sloping site would be permitted. Sa� exposed sur- face parking would be permitted, however, the majority of spaces should be enclosed. Valley Avenue and a portion of Capitol Heighzs would be closed to permit a large and continuous residential development in this excellent topographical setting. Institutional The land use pattern at the heart of the North Capitol precinct reflects the existing Bethesda Rospital and state government facilities and the need for their future expanaion. The ares designated for etate gover�ent extends along University Avenue between Rice Street and Capitol Heights. This corridor has the potential for intensive development of atate government facilities in close proximity to the State Capitol. The knoll at the eastern end of this corridor should be developed as an open space. However, because of the large amount of open space available in this area, additional government facilities could be developed somewhat to the north along Charles Avenue . A key theme, in this proposed plan for the North Capitol precinct, is intensive development of land with an emphasis on careful control and definition of open space. The vast mall in front of the Capitol ahould remain as the major � open space for the entire Capitol area - north and south. It is proposed that certain streets be closed in this area to avoid the dis- ruption of homogeneous functional areas by through vehicular traffic and also to achieve an environment more conducive to pedestrians. It is reco�ended that - 45 - � � � � � � � � � � � � � � � � both Sherburne Avenue and Capitol Boulevard be closed and developed into malls which would visually and functionally liak various uses. (Both streets could be allowed short penetrations into the area for accesa to existing facilitiea.) All parking in the Institutional area would be in ramp structures below grade. Commercial Co�ercial uses are required to achieve the desired multi-use character recommended for the North Capitol precinct. However, the existing pattern of deteriorated and disorganized strip eomnercial would be removed and replaced by a more functionally efficient connaercial concentration in the northwest quadrant of the Rice Street/University Avenue intersection. (A minor portion of new co�ercial uses should also be eatablished on the south side of University Avenue between Marion Street and Rice Street. ) Permitted activities within this land uae category would include retail out- lets, cammercial servicea, restaurants, entertai�mtent, office use, motels - all uses which are people-oriented and appropriate to a commercial location in close proximity to the State Capitol. Of,f street parking would be required with as many spaces as possible being in ramp structures. Substantial surface parking will probably be necessitated by economic consfderations. Such sur- face parking would be allocated at the rear of commercial sites - preferably in a consolidated parking area serving the entire coma�rcial concentration. - 46 - . \ \ . <�- ; \ \ � . \ \ \�\\ � \ \ �\ � \��\\\ � \ \�� Q�� \ \ \\\\�� _\� � � \ � : \ ` ,.. �� .. `; : , o�� " �; ��\ � :=� �°°\ o � � � �� `o � � ° • � _,>,� ,•.?t�\\��\��`' � 5 � � � � \ � � � \ '` � \ � \\\\\\\\\\\\\��o� � :, � �� ' !„`;,rg'. \ � �4.. � � � x' � .� � �. \��\\\ �=`� \Q��O� �,��..�F . � - � _ _ _ � . _ - ' : � � � � � � � � r � � � � � � PROPOSBD CIRCULATION Proposed circulation within the Study Area as delineated within the accom- panying graphics purposes to solve those deficiencies as noted within the Circulation and Visual Analysis sections and to enhance those areas and their respective uses within the Special Land Use section. Vacation of Como Avenue between Marion and Rice Streets serves to lessen the vehicular impact of through traffic to the central portions of the Study Area and redirects it southward along Marion Street or eastward along Arch-Pennsylvania Avenue. As indicated, Rice Street is proposed to be visuallq upgraded by wideniag, inclusion of a median strip and selected turning slots. As a prooninent access, this treatment along with appropriate landscaping and suggested building mass- ing will be discussed within the Illustrative Site Pl�n section. With the maintenance of a conservation-restoration area along Winter Street, a cul de sac is proposed for its western terminus and an eastern realign- ment into Capitol Heights and a realigned Como Avenue is suggested. This treatment will enhance the residential character envisioned for the area by eliminating through traffic to Rice. Maintaining accessibility to the central study area--the Governmental- Institutional Precinct--requires the continued usage of Park and Cedar Streets as major north/south internal elements. At the same time, suggest- ing a realigtnnent at the eastern end of Como, prompting an easy access to or fraa Rice and Jackson Streets to meet the northern east/west need. As noted and rec am�ended within the Visual Analvsis and Special Land Use sections, Capitol Boulevard and Sherburne Avenue provide a visual and functional axis prompting a recommendation to modify both streets for a pedestrian mall. - 47 - � � � � � � � � � � � � � � � Although the Future Action Area requires further study and refining, topo- graphy, proposed special land uses and access to the Goverrnnental-Institutional Precinct suggest the illustrated treatment for Capitol Heighta. Transit considerations within this area continue to recognize Jackson and Rice Streets as major north/south corridors, with University Avenue provid- ing the principal east/west link. Review of major efforts into alternative rapid transit systems have been explored. These alternatives propose ma�or links or corridors for execution which are consistent with those proposed within the Capitol Area Architectural and Planning Coam�ission's Comprehensive Plan. - 48 - � � � � � � � � � i■w � �■■i � � w� �' ' � �----__J � _----� �----� �--__-� � � ; -� �--__-- �---- -- i � � � � � � �-1 ! � , , ; � � � f I� I - - - � � � � r f I - _ II 7 -- - - 1_ _ � _ � � � � � � � :::::::::::::::: :::`: : ;:: ::; ::. � � � ; , � � � � � � :::::.::::::::: .. ::: ::: ::::;: ::;::. I � � . ► � , ', , � � , � � � � . � � � � :: : t ;: :: � � � _ _ _ : �.-� � e �7T7T 11111 � . , ,I s i� I� TT :<>:;>:ss:€;s>:3>:!>'>">:::;::;:<>:» :::':::';::> ' � I � ••� 11�� . � o I ',, N ' I " � � / � .. 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Rober S reet >:>::t<:�:>':<3:;:i;:s;::`::::::<::>:>::>:::'>`° � � —� � � �� I ��.._.... _ � 1 � � �`�� `�� ; � :�1�`\� �````` I /1��, �� .,�-� �� I , , �. _.�� - _ � � :: :, % • • o � � $ � � x. � ;>:: y x e� o �• � 0 0 �°' L: f �e �, e ec �. � � a � � � � �° a � � r� �y dQ � � ~ iJ � �, 7 b � � � p � � � � � � � A� � � � � `� ° °� � � � a � d � ti �r �• � e � � �. g � �e � o � �' � ; � $ � � � � « � " rr �� w r � � � � � � � � r � � � � PLANNING AND DESIGN FRAMEWORK The Special Land Uses Plan astablishes the basis for a planning and design framework which defines more explicitly the intensity and rela- tionship of functional areas, the linkage pattern, and the auggestion of three-dimensional relationships. GOALS 1. To establish a well-defined, identifiable Capitol North area which relates to and further reinforces the definition and imageability of the Capitol precinct as a whole. 2. To develop a character of intensively developed space particularly in that area of close proximity to existing hospital and state institutions. 3. To achieve a well-definedand visually controlled open space system con- sistent with the goal for an intensively built-up area. 4. To develop a pedestrian eirvironment throughout with a linkage system of malls, plazas, skyways, etc. which will connect all functional com- ponent� in the higher intensity areas. 5. To develop the most intensive institutional, commercial and residential uses along major north/south and east/west spines. 6. To develop a well defined sense of edge to the North area as a whole and also to the individual functional areas within. In the latter case, the defining edge element can also serve to be a "seam" or transition between diverse land uses. DESCRIPTION OF FRAl�WORK PLAN The South Capitol area, consisting fundamentally of a mall and flanking govern- ment buildings, has a monumental, ceremonial, open space character, In the North area, it is reconmended that a multi-us�, �ighter relationship of masses and open spaces be established to reflect the living, working, shopping and visiting character inherent in this area.` - 49 - w■� � � � � � �■■� � � � r � r � � There are basically two levels of intensity of buildup--the outer ring, occuring 81ong the northern and e�stern sectors of the area would have the lowest intensity of development. This includes the proposed Rice-Marion hous- ing project, the corridor of existing s�ngle�family homes along {�'intes Street, and the proposed future medium-density district along Jackson Street. The inner core of higher intensity uses occurs in the central and southwestern sector of the area. The pattern of buildup in the core or central area would be one of developing a horizontal type of massing, for all usesA consistent with height restric- tions. It is proposed that building masses cover most of eacb aite to achieve an urban texture, scale and character. A number of buildings would necessarily be formed around interior courtyards. Exterior public open space would be carefully controlled and defined to be consiatent with the propo�ed intensive character of the North Capitol area. A system of pedestrian spines, or corridors, is proposed to visually and func- tionally link key uses occurring at the perimeter of the intensive core area. These uses include the Bethesda Hospital canplex at the north, the Capitol Build- ing at the south, the comnercial concentration at the wesC and the potential , recreational park open space at the east. These linkagea would form the basic system around which the intenslve uses would develap. Capitol Boulevard and Sherburne Avenue could be completely or partially closed with the vacated space being developed into a system of pedestrian walks, malls, plazas, sky- ways, etc. North/south and east/west spines would thus be created which would connect to and functionally relate institutional, commercial, residential and park open space uses. Minor extension of the spines Co other areas would be created as required. A key aspect to the spinal systems is a pattern of nodes at key intersections and terminations. For example, the pedestrian corridor along Capitol Boulevard would be structured with well-defined visual terminal spaces at the Bethesda complex and at the North Capitol entrace area which would occur over a depressed University Avenue. In addition, a major node space would occur at the intersection of the north/south and east/west spines. - 50 - � � � � r � r � � r � rr � � � The pattern of intensity and the pattern of pedestrian linkages will provide basic structuring elements for physical davelopment. There are other elements which will further reinforce the planning and dmsign framework and provide a greater sense of visual continuity and unity. These include design consider- ations primarily related to the street enviromm�ent; such as the street pattern, itself, landscaping, lighting, furniture, graphics, facade relationships, etc. In this framework plan, the major street corridors would be desfgned to improve the quality of spatial eitvironment and to serve as defining visual edges and seams throughout the area. Basically there are two levels of development intensity and resultant formality of character. The street environment would reflect this. The outer ring of low•intensity environment is generally defined by Jackson Street, Arch-Pennaylvania Avenue and Marion Street. The treatment of this boundary would be somewhat informal and include landscape groupings, earth berming and enhancement of the topography to create buffers and to suggest the beginning of the North Capitol area. Within the core, the street enviror�ment would be more formal and intensive in character and reflect the relationship of this area with the Capitol. - 51 - �� _ ��a� �4 7. Sr ,��y $�r�i;'a� 4r•, Y "� a � s� x {:te ��a� ,yii s'�'Yl '��? `�' ��t� ' 6. �+�� + �` '�I' '�"5 ya c r . 3 ,.� r �a � t � a'y��?�: `.' ::� � � � �}� ' � 1x' t�'�� ^� ��;�: � �'�� 37 .,. i ` �. s �.x ' ��.�� :� ' - a+ � . ti �:� x � a' «. . :' ' � .. :� ,�.. C 4y` � � r a . �� F } �.4 -�� . s§s r i� '� "T �. £' s J r xf,y 5.. t fi ��5,. ' � "�� s . y z fY 'ks• yS�. 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I�+• � � � fD b �' ] � � � � 0 5 � � � � � � � � � � � � � � � ILLUSTRATIVE SITE PLAN The illustrative aite plan is an outgrowth of the visual analysie and the goals established for the Special Land Use Plan and the overall planning and design framework. The purpose of the illustrative aite plan is to convey the broad goals for building heights, setbacks, spatial definition, massing re- lationships, etc, and to generally descrfbe types of specific uses snd their relationship in a three dimensional setting. A basic goal for the North Capitol area is the attainment of an intensive, three-di�nsional physical buildup with controlled and well defined open space. The general three-dim�nsional character would be one of horizontal masses, often surrounding interior court spaces, extending out to near the street en- vironment. There is an attempt to achieve a building bulk, scale and character appropriate to the State Capitol complex yet retain an individualitq, interest and variety of architectural expression. A major planning element is the development of the spine system referred to in the framework plan. As shown in the illustrative site plan, this would consist of pedestrian plazas, malls, walks and skyways to create major linkages in north/south and east/west directtons in th� intenaivelq developed central sector of the North Capitol area. Major pub:ic spaces would occur at terminations and intersections of the spine system. Concentratians of com�nercial and residential masses would be grouped around the spine. A compact., ..clo�sl3► knft envirotnnent ie thus creeted resulting in ease of movement and good interrelation- - ship among all the functional components of the area. The major impact area, defined generally by Park SCreet, Cano Avenue, Edmuad Avenue, Marion Street and University Avenue, is delineated in more detail. The northwest quadrant of the Rice Street/Universitq Avenue intersection is designated as commercial. An "L" shaped complex of buildings, fronting on Rice Street and University Avenue, and screening a consolidated surface parking area in the rear, is the type of development desired. The attainment of a substantial emount of housing in the �jor impact area is of critical importance. A wide variety of inediun-denaity, low-rise housing (3 - 6 stories) would be desirable. This would include towuhouses, court houees, walk-ups - 52 - � � � � � � � � � � � � � � � and elevator apartment buildings. The higher range of inedium-density housing would be located in close proximity to the east/weet spine and in locations Where skyway connections can be realized to institution facilities acroas Park Street. Fram these locations, the housing masaes would be scaled down to the lower and middle ranges where there is a close relation to existing single-family honses at the proposed Rice-Marion redevelopment project. As . with other building massing, the reaidential complexes would extend horizontally over much of the site area, around an internal system of open space. The facades facing Rice Street should be of a scale, configuration, height and character which is appropriate to a major entry artery to the State Capftol coaplex. Also in the major impact area is the strategically located block defined by Rice Street, Sherburne Avenue, Park Street and University Avenue. Christ Lutheran Church occupies the southeastern area with the remainder owned by the State. Because of this location near the Rice/University intersection and the east/west spine, it is recommended that portion of the site be developed into a State office facility. A substantial portion of the site, however, should be reserved for a public open space near the street intersection. A key urban design goal is to develop an open space/massing relationship which will visually reinforce this important vehicular and pedestrian concentration point. - 53 - � � � � � � � � � � � � � � � � U �___J �..._�J � � :: m :�� , , . � � . �, , . ; ��.� ; � � � . a � � " � � � 5 m . ; � 3 ': ' � " _ Park Street .< :; -'� "`::> ; ; ;. n.. . _,....:,..� ..�,..: : . � ��,.. 3 's.' / � i: I I . ': � � .::F: adar Street F� ; x ':: £ :: '.: t a a�� ;` �� .o�' c °� Robert Street `D� � � I % A. .. O irYwM 7 i////�� 60� . 1 5�< 9 KSpt` �a� $ � ' O � � � > g ° Q. �"y � �' � a o � y � i"'� C O "s � " � � '� n �. f�D � � �• b. (�'p �' O Q,+ v o' a 5 � � 8 g �o ; � °° � ,�' � � � < � y � � � `° o r"r .:� . � � � � r+. � � '' � � � � � � � � � � � � � � � � PROPOSED REDEVELOPI�NT AND TECE�iIQUES FOR IMPLRI�ATPATION Within the Illustrative Site Plan, specif�tc recou�endations have been delineated which are an outgravth of the assessment of both the Elements and Synthesis factors previously discussed. Recognizing that any imple- mentation requires a systematic approach, it is now necessary to identify specific action proposals and their priority for execution. The area designated "Initial Action" is a combination of the Major Impact Area and the Conservation-Restoration Area. Within this boundary, specific phasing has been recommended which recognizes a number of concerns mentioned elsewhere--CAC reco�mnendations, relocation considerations, market potential and a host of others. For convenience, the priority of varied activities will be presented within each Treatment Area as previously id�ntified. MAJOR IMPACT AREA Phase 1 A two-block area bounded by Charles and University Avenues, Rice and Marion Streets are proposed for commercial redevelopment. The acquisition of S1 properties and the relocation of 47 individuals and 49 families within resi- dential and 13 non-residential structures, including the demolition of 56 structures,would require an expenditure of $2,865,105. Phase 2 A block bounded by Charles and Edmund Avenues, Rice and Marion Streeta is proposed for medium-residential redevelopment. The acquisition of 48 pro- perties and relocation of 33 individuals and 36 families within residential and 10 non-residential structures, including the demolition of 51 structures, would require an expenditure of �1,593,35p. A triangular block bounded by LaFond Avenue,, Rice Street and Como Avenue is proposed for medium-residential redevelopment. The acquisition of 16 proper- tiea and the relocation of 9 individuals and 9 families within reaidential and 6 non-residential atructures, including the demolition of 12 atructures , would require an expenditure of 572 105. - 54 - � � � � � � � � � � � � � � � The south one-half of a block bounded by Charlea and Sherburne Avenues, Park and Rice Streets is proposed for redevelopmeat with medium to high- residential along an east/west spine. The acquisition of 8 properties and the relocation of 3 individuals and 1 family within residential and S non- residential structures, including the demolition of 7 structures,would require an expenditure of $815,775. � Phase 3 An area bounded by the alley line between Charles and Sherburne Avenues, Rice Street, Winter and Park Streets is proposed for medium-residential redevelopment. The acquisition of 53 properties and the relocation of 6 individuals and 8 families within residential and 34 non-residential struc- tures, including the demolition of 54 structures,would require an expendi- ture of $2,245,530. The half block bounded by Marion Street, Univereity Avenue, Bice Street and the alley lying between University Avenue and Aurora Avenue is proposed for commercial redevelopment. The acquisition of 7 properties and the relocation of 2 individuals within residential and 11 non-residential structures, includ- ing the demolition of 7 structures,would require an expenditure of 964 650. CONSSRVATION-RESTORATION In this segment of the Study Area, rehabilftation is the predoaninant, feasible activity to be undertaken with the objective of bringing all properties up to code standards to assure the arrest of blight. Rehabilitation of existing structures is the primary goal, and the ob�ectives of rehabilitation, as set forth in the City's "Area Improvement Program for Residential Rehabilitation," are as follows: 1. Support and encourage cooperative neighborhood improvement efforts by ensuring the availability of financiag and technical asaistance for area improvement efforts. - 55 - � � � � � � � � � � � � � � � 2. Achieve substantial, visible improvement sufficient to strengthen neighborhood stability and encourage continuing private reirrvest- ment in residential areas with substantial rehabilitation needs, 3. Through concentrated assistance, ensure that as many rehabilitation needs as possible are met, including those which can be met exclu- sively through the private market. 4. Reinforce existing sound neighborhoods and previous investment in neighborhood improvement by extending improvement efforta to nearby areas threatened by blight. 5. Coordinate completion of required public improvements and other can- munity development needs with area rehabilitation efforts where possible to strengthen area-wide impact. 6. Maximize public/private cooperation in neighborhood improvement so that increasingly the efforts of private citizens, neighborhood organizations, lending institutions, the City, the State and other public agencies reinforce each other in xeaching the coam�on objec- tive of a high-quality residential envirornaent in City neighborhoods. While rehabilitation is the predonninant tool to be utilized, it is recognized that there may be a certain limited number of properties within the area for which rehabilitation is not a feasible or appropriate tool, and therefore availabilitq of other tools supplementary or complementary to rehabilitation may be necessary. These other tools include house moving, housing recycling (whereby HRA purchases, rehabilitates and resells a house) , sale of vacant land for new development, canstruction of public improvements, spot acquisi- tion in certain restricted cases where project objectives can be achi�ved only through such acquisition and finally code enforcement. The successful application of all of these tools relies upon area resident organizations to achieve a voluntary willingness on the part of each property owner to take the appropriate measures to correct the deficiencies in hia or her property. - 56 - � � � � � � � � � � � � � � � In the course of carrying out the several activities to bring about building condition isprovement, there may be instancea where a building inspection, neighbor caaplaint, owner request or other action will result in the need to placard a building as being unfit for huraan habitation. In such instances, procedurea will be taken to protect human life and safety. However, r�loca- tion benefits as provided by law will be made available. to occupaats. Of course, other less serious types of code violationa may be uncovered in buildings throughout the area in the course of carrying out the range of activitias proposed, In these instances where the code violations do not render the building unfit for human habitation, the owner will be encouraged to correct the deficiencies through the voluntary rehabilitation program, or house recqcling will be conaidered as a possible alternative, It is recon�ended that actioas be initiated to accaaplish the goals of Resi- dential Rehabilitation through the acquisition of 16 substandard properties and the rtlocation of 17 individuals and 12 families in residential and 3 non-residential structures, including the demolition of 17 etructures, at an expenditure of 791 650. In an attempt to gain some idea of rehabilitation costs for the remainder of the area, interior inspection reports were reviewed and rehabilitation esti- mates were assigned, The cost of rehabilitating structures within the Conservation-Restoration Area is estimated at 176 000. FUTURE AGTION Although this area has been designated for a medium-residential and open space use within the Comprehensive Plan, it is recoma�ended that the block bounded by Como and Charles Avenues, .Cedar Street and Capitol Heights be incorporated within the medium-residential designation previously explored and so indicated within the Future Action boundary. The opportunities for s well-integrated link within sa open space system exists to the south, affording an opportunity to expand the medium-residential use. The Proposed - 57 - � � � � � � � � � � � � � � � Circulation plan recognizea this opportunity and offers a system that would pranote limited access and supplement gooc� aite design alternatives. By its very nature, location, topography and uncertain adjacent activities, cost estimates to execute the implementation of this phase muat be based on an upper figure determined by acquisition of all properties. The estimate for implementation is $1,186,605. As indicated within the Visual Analvsis and Market Potential, this area as well as the entire Study Area is affected and effects a broader dimension of the comaiunity than just that isolated within the study boundaries itself. In an attempt to evaluate character and influences created by surrounding areas, the Saint Paul Housing and Redevelopment Authority has initiated planning studies for Mt. Airy to the east �nd the area north of Arch-Pennsylvanis Avenue. Although such studies are not within the purniew of this analysis, their address is appropriate in extracting an o�verall plan which accomm�odates the full potential of the entire community. GOVBRNI�NTAL-INSTITUTIONAL PRBCINCT Review of the Planning and Design Framework and the Illuatrative Site Plan suggests a varying intensitq development linked by both an open and enclosed pedestrian apine. These spines are located along Capitol Boulevard and Sherburne Avenue, respectively, t+equiring an estimated expenditure of 116 500. M additional $100,000 would be required if a skyway were placed across Rice Street at Sherburne. It is also suggeated by the shaded areas along the spine thaC these sites be utilised for appropriate buildiag massing. As delineated previously, the northeast corner of Rice and University plays a significant role fran both a visual and urban desigu element within the averall framework. It is highly reco�m�ended that this area is appropriate for a 3tate office building and that such an activity be coordinated within the imple�entation of Phase 1. in adjacent areas. - 58 - � � � � � � � � � � � � � � �' COMPOSITE OF PUBI:IC IMPROVEMENTS With the assessment of existing Utilities and Street Conditions, the Illustrative Site Plan has been reviewed with consideration to the modi- fication, vacation or improvement of specific elements within the Study Area as they affect public improvements, The following considerations have been explored; � Proposed Street Vacations Vacation of Sherburne Avenue between Marion and Rice Street; Vacation of Sherburne would require relocation of a 16" diam�ter high pressure gas line lying in the street right-of-way. Rerout- ing the line around the northern block via Charles Avenue or around the southern block via University Avenue would cost approximately $80-90,000. A 4" diameter low-pressure line now praviding local service connections could be abandoned or used in redevelopment plans. Alternatively providing an easement across the development site would restrict site planning, Abaadonment of sewer and water lines along 3herburne Would not adversely affect services at neighboring locations. New sewer con- nections could be made at University Avenue, Charles Avenue, Marion Street or Rice Street. No electrical lines lie in the street right-of-way. Aaaever, redev- elopment of the tWO-block area between Charles and University Avenues, Rice and Marion Streets, would require temporary or permanent reloca- tion of an underground electricaT line which provides service to the northern blocks within the Rice-Marion corridor. Vacation of Crnno Avenue between Arch-Pennsylvania Avenue and Bice Street; Vacation of Como Avenue presents major problema with water aad sewer service since both utilities have arterial lines in the street right- of-way. If an easement is not provided, a 20" diameter aatcr supply - 59 - � � � � � � � � � � � � � � � main will have to be rerouted at an eatimated cost of $70,000. New service connections will have to be provided at no additional cost to replace the old connections from Como Avenue. 1�wo sewers, 12" and 36" dia�ter, provide sanitary and storm water drainage from a 4-block section of the Study Area. If Como Avenue is vacated and sewer easements are not pravided, relocation of the sewers to another street right-of-way is necessary to maintain area drainage patternso . Relocation costs for the sewers would be approxi- mately $110,000 plus additional cast for service connections. Northern States Power has a 4" diameter low-pressure gas line in the Como Avenue right-of-way. This line could be abandoned without adversely affecting neighboring service areas. New service connec- tiona could be made at Marion or Rice Streets. An underground electrical service line ruas in the street right-of-waq between Thomas Avenue and Arch-Pennsylvania Avenue. If no easement is provided, this line will have to be relocated to maintain electrical service to an area north of Arch-Pennsylvania Ave.nue. Charles Avenue - "Narrowing" for im�ediate access betaeen Marion and Rice Streets, Vacation between Rice and Park 3treets; Existin� utilities withtn the Charles Avsnue right-of-way between Marion and Rice Streets conaist of a 6" diameter water main, a 9" diameter collector aewer, and a 4" diameter low-pressure gas pipe. All utilities are local service type, and if abandoned, would not affect area services adversely. Depending on redevelopment plans, new utility connections could be made at surrounding streets. Proposed Street Impro�vements Widening of Rice 3treet The proposal calls for a 10-feet widening of Rice Street from Univer- sity Avenue approximately 1600 feet north to Arch-Pennaylvania Avenue. - 60 - � � � � � � � � � � � � � � � Total project cost is estimated at $305,000. This estimate includes costs for widening and resurfacing of Rice Street with a tr�ffic channelizing median. Also included are sidewalks with integral curb, street lighting, landscaping consisting of trees in concrete planters and necessary reconstruction or adjustment of sewer structures. Sesidential Street Improvements Streets included in the fmpravement proposal are Winter Street between Rice and Capitol Heights, Park Street betWeen Cano and Pennsylvania, Capitol Boulevard between Como and Pennsylvania, Capitol H�eights between Como and Pennsylvania, and Valley Street between Capitol Heights and ,Tackson Street, Total project cost is estimated at $267,000. This estimate includes costs for street paving, driveways, street lighting, boulevard sodding and landscaping, adjustieent of aewer structures, and replacement of sidewalks and curbing where needed. As indicated within the Planning and Design Framework, certain improve- ments of minor and major streetscapes are recommended. Arch-Pennsylvania Avenue from Rice Street to Jackson Street ahould receive minor landscape treatment to include tree plantings at an estimated expenditure of. 18 500. Along Marion Street fran University Avenue up to and including LaFond Avenue to Rice Street should receive minor streetscape improvements in terms of tree plantings. LaFond Avenue should receive improvements for street paving, driveways, street lighting, boulevard sodding and landscaping, adjustment of sewer structures, and replacement of aidewalks and curbing �here needed. An estimated expenditure for this sectian of the Study Area is 56 000. University Avenue and Jackson Street should receive major and minor streetscape improvementa respectively. An estimated expenditure for these activities would be 17 600. - 61 - � � � � � � � � � � � � � � � , � The remaining streets requiring minor streetscape improvements include Como Avenue between Rice and Cedar Streets, Park and Cedar Streets between Aurora and Coano Avenue, Required activities would include street lighting, boulevard sodding and landscaping, adjustment of sewer structures, and replacement of sidewalks and curbing where needed at an estimated expenditure of 30� 2250 Total costs of the above liBted publir improvements are estimated to be $1,176,825. � , , - 62 - � � � � � � � � � � � � � � � IMPLEMENTATION The acceptance of this report and the allocation of funds for the redevelopment of the Capitol Area will complete the comprehensive planning phase of this project and initiate the implementation phase. From the onset of implementation, a site office functioning as an arm_ of the central agency and staffed with a project planner, c�nity organizer, property manager, relocation counselor, rehabilitation advisors and approprfate clerical personnel should be established; a site office which is visible and convenient to neighborhood residents and business- ment; a site office which is in day-to-day comonunication with the Capitol Area comnminity. Although a comprehensive plan is completed, it should be emphasized that a translation of this plan into lot by lot determinations and thus a detailed action plan is a necessary part of the implementation process. Delineation of an action plan relies on specific kinds of professional skills directed toward the coarpilation of the follawing typee of infonsations 1, Inspections and feasibility studies relating to the rehabili- tation of individual properties. 2, Analysis of relocation, housing needs and housing resources. 3o Bach family, individual and businesB firnn to be displaced will � be assisted by a relocation specialist assigned to assist the displacees in obtaining adequate replacement housing or locations and in the preparation of claims for payment of relocation finan- cial benefits. All eligible displacees wi1Z be entitled to full relocation pay- ments and assistance under the provisions of the LTniform xeloca- tion Act of 1970 and State law which has been enacted ia purau- ance of that Act. - 63 - � � � � � � � � � � � � � � � 4. Appraisals .of property subject to acquisition and the prepar- ation of documients relative to the sctual purchase of the�e properties, 5. Urban Design studies of specific redevelopment sites culminat- ing in the preparatioa of development controls for land to be sold. 6o Advertisin� and solicitation of developer interest, followed by design review of specific proposals. 7. Input from a representative neighborhood organization regarding the development of specific activities to be undertaken and coanunication of these plans to the commuaity at large. 8. Legal review of proposed actions. 9. lreparation of detailed documenta covering all aspecta of the development program for the review approval of appropriate �avernmental bodies. Only after this kind of detailed project planning is accomplished can a development program be imple�ented; i.eo, the g�tual purchase of property, the relocation of families and businesses, the rehabilitation of structures, conatruction of streets and related improve�nta, etc. - 64 - � � � � � � � � � � � � � � � BUDGET AND METHOD OF FINANCE COSTS MAJOR II�iPACT AREA �_� Phase 1 Major Impact Area 2 865 105 $ � , Conservation - Restoration 967,650 Pnblic Improvementa 385,500 , Rerouting 16" gaa line Street iaprovements Conservation Area Minor streetscape i�provement Arch-Penn. Major streetscape improve�aent Universitq Avenue Rice-Marion Phase 1* 1,200,000 Administration 843,651 Total Costs - P'hase I $6,261,9�6 *+City of Saint Paul NDP expenditure to date for the acquisition, relocation, demolition and vacation of Thomas Avenue for multi-family development. Phase 2 A block bounded by Charlea and Edmund Avenues, Rice and $1,593,350 Marion Street is proposed for medium-residential develop- ment. A triangular block bounded by Lafond Avenue, Rice Street 572,105 and Como Avenue is proposed for medium-residential develop- ment. The south one-half block bounded by Charles and Uniwersity 815,775 Avenues, Park and Rice Streets is proposed for redevelop- ment With medium to high residential along an east/west spine. Administration 596,246 Total Costs - Phase 2 $3,577,476 - 65 - � � � � � � � � � � � � � --�..__._� Phase 3 . An area bounded bq the �lley line between Chsrles and $2,245,530 Sherburne Avenues, Rice Street, Winter and Park Streets is proposed for mediu�-residentiai redevelop�ent. The half block bounded by Marion Street, Univeraity Ave- 964,650 nue, Rice Street and the alley lying between Univeraitp Avenue and Aurora Avenue is proposed forlcornercial development. Project Improvements Widening of Rice Street 305,000 Minor Streetscape improvements 362,225 Marion including Lafond to Rice Como Avenue betw�een Rice and Cedar Park and Cedar Streets Ad�inistration � 775,481 Total Costs - Phase 3 • $4,652,886 GOVERNMENTAL-INSTITt1TI0NAL PRECINCT Open and enclosed pedestrian spine along Capitol $ 116,500 Boulevard and Sherburne Avenue. Administration 23,300 Total Coets $ 139,800 FUTURE ACTION Although redevelopaent scheaee for the area reQuire $1,18b,605 further delineation, thia estimate represents a maxi�ua figure based upon total acquisition and relo- cation. Project Improvements 7,600 Minor streetscape isprovement along Jackson Street Administration _ $ 238,841 Total Costs $1,433,046 COSTS FOR TOTAL IMPLEMENTATION $16,065,114 - 66 - � � � � � � � � � � � � � � � �PO'TENTIAL METHODS QF F�INANCE - , �Within the Major Impact Area, a number of fingncial resources for implementation are possiblt. These potential sources are as follows: � STATE f ` It is recommended that the Legislature examinel, a�sess the merits and endorse the recommendationa presented Within this report and sppropriate State funds to undertake its implementation. Such a State co�itment yrould ensure redevelopment of the area susrounding the Capitol build- ing in a manner com�ensurate with the beauty and grandeur of the Capitol compltx itself. The State could provide displaced businesses with low-interest loans comparable rith SBA ratea available to those businesses displeced through federally funded programa. Since the State provides this service with residential mortgages, it should be available to buainesses. This would enable nany of the displaced businesses to build their own buildings. A lease guarantee �imilar to SBA should also be considered for tenants. At the present time, SBA loans are not available to displaced busineases �ere no federal money is used to finance the redevelop- ment. With respect to rehabilitation funding sources, the 1974 Legislature approved a city-wide rehabilitation program for Saint Faul. Program guidelines were developed by a Citizen's Task Force that included a number of City staff. A public hearing was held on this program at the City level in late Navember, 1974. The staff has been authorized to make a bond sale, and it is antici- pated that the program will go into effect som� time in February or March of 1975. The law, as passed by the Legislature, limits the program to the rehab- ' ilitation of housing for low and moderate-incane persons, and it does contain a provision for making a limited number of grants to low-income persons. - 67 - � � � � � � � � � � � � � � � The 1974 Lesiglature also approved a rehabilitation program to be operated State-wide under the auspices of the Minnesota Housing Finance Agency. The total funding allocated was $100,000,000 with preliminary computation of Saint Paul's allocation at $17,000,000. The legislation, as passed, included a grant program, which was not funded in 1974. It is anticipated thaC the 1975 Legislature will be requested to fund the grant portion of this program. The program is simed primarily at the rehabilitation of housing units owned ' by low and moderate-incane persons and preliminary guidelines have been drafted by a special task force consisting of staff of various agencies plus some citizen input. Public hearings have been held around the State based on these preliminary guidelines. It is anticipated that the State program will be funded sane time inthe spring of 1975 depending on the intertst _ rate of the bond market. C ITY The City of Saint Paul as a source of complementary funding might include budgeting of project improvements within the Capital Improvemment Budget, In addition, issuance of General Obligation Bonda to be repaid from a Tax Incre- ment Prograa as described later in this section also maq be feasible for certain activities. COPII�![TNITY DEVELOPI�Nr FtTNDS Funding through the use of the City's Community Development Revenue Sharing Program is another possibility. City staff has proceeded with the formula- tion of an Application for Coadnunity Development Funds. In order to be eligible for these funds, the area must qualify as an area of need, The basic criteria used in �udging an area is the condition of housing and the existence of families with low incomes. Both criteria have been examined within the Capitol Area and the existence of deteriorated housing and low incame have been documented. Therefore, the Capitol Area clearly qualifies as an eligible area for the expenditure of Comm�unity Development Revenue Sharing Funds. However, it �ust be recognized that CDRS funds are simply a replacesent source of funding to continue progra�s �ich have been - 68 - � � � � � � � � � � � � � � � ongoing im many major areas of the City where critical unmet redevelopment needs still exist. Federal funding levels for CDRS will be no higher than what has been received in the past for the first three years of the program. and will decline sharply thereafter. Thus, while the needs of areas of the cicy formerly not included in the categorical programs being replaced by CDRS are being considered by the cicy as it prepares ita application for the first year of CDRS, it ia not reslistic to expect any major allocation of limited CDRS funda for the Capitol North area. TAX INCRBI�NP The State Housing and Redevelopment Act, Minnesota Statutes 462.411 et.seq., describes a method of renewal known as tax increment financing whereby. a � local Housing and Redevelopment Authority can conduct redevelopment activi- ties on a locally financed basis without federa,l assistance. To implement a tax increment financing program, the Housi ng Authority must first prepare a redevelopmenC plan based on a survey and analysis of comm�unity needs, problems and redevelopment opportunities. The redevelopment plan is reviewed by the Planning Commiasion and submitted to the Municipal Council for review and approval. Following a public hearing held by the Council, permanent financing is provided through the sale of General Obligation Bonds that will subsequently be repaid with tax increments from the redeveloped � properties. Those properties identified for redevelopment are sequired and cleared by the Housing Authority and resold to private owners for redevelop- ment. The difference between the amount of the property taxes before and after redevelopment are referred to as tax increments. Tax increments are � pledged by the Housing Authority to redeem t�� General Obligation Bonda that ` were initially pledged to finance the project. The result of a redevelopment " program is an isproved tax base that will benefit the entire community. - 69 - � � � � � � � � � � � � � � � PRIVATE INVESTI�NT Irivestment activity within the Study Area has recently included the following: A new medical office building on the northeast corner of Park Street and Como Avenue, ar_ adjacent parking ramp on Como Avenue and Capitol Boulevard serving the parking demands of both the medical office and Bethesda Hospital canplexes, the recent coa�pletion of a Home Federal banking facility on the southwest corner of Marion and University, current plans for the expansion of drive-in banking facilities for Sumnit-National Bank on the southeaat corner of Univer- sity, and a professional office building concept proposed by the Minnesota Society of Professional Bngineers in an area west of Bethesda Hospital, These ongoing activities and a recent $1,500,000 3tate appropriation for the initia- tion of feasibilitq studies to determine legislative office space indicates that the area has and will continue to respond to favorable opportunities. - 70 - � � � � � � � � � � � � � � � RECOI�NDED 1�THOD OF FINANCE It is recommended that the Legislature and the City of Saint Paul examine, asaesa the merite and endorse the recommendations within this report, a�d appropriate funds to undertake its implementation. Such a comaitment would ensure redevelopment of the area surrounding the Capitol Building in a manner cotmaensurate with the besuty and �randeur of the Capitol complex itaelf. The Commisaion also recommends that the HRA of Saint Paul aeswne the admin- iatration of the North Capitol Area Project. - 71 -