09-143Council File # Q S-0�,�
Green Sheet # 3065795
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RESOLUTION
SAINT PAllL, MINNESOTA
Presented
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WHEREAS, Minnesota Statutes 462.353, subd. 1, grants a municipality the authority to prepare a
comprehens+ve plan, which is defined in Minnesota Statutes 462.352, subd. 5 as "a compilation of policy
statements, goals, standards, and maps for guiding the physical, social and economic development, both
private and public, of the municipality and its environs. ..."
WHEREAS, Minnesota Statutes 473 856 requires that municipalities prepare comprehensive
plans consistent with the development guide and the metropolitan system statements adopted by the
Metropolitan Council; and
WHEREAS, Minnesota Statutes 473.859 details the content of the comprehensive plan; and
WHEREAS, Minnesota Statutes 473.864, subd. 2, requires that municipalities review and update
as appropriate their comprehensive plans every 10 years and submit them to the Metropolitan Council for
review; and
WHEREAS, Section 107.02 of the City of Saint Paul administrative,code authorizes the Planning
Commission to organize and facilitate the preparation of the Comprehensive Plan and any subsequent
updates and to transmit its recommend to the Mayor and to the City Council; and
WHEREAS, Section 107.04 of the City of Saint Paul administrative code authorizas the Planning
Commission to appoint task forces as advisory bod+es to study technical issues identifiea by the
commission and to report their findings to the commission for its consideration; and
WHEREAS, the Comprehensive Planning Committee of the Planning Commission in January
2006 began the coordination of tasks necessary to prepare the Comprehensive Plan up�ate; and
WHEREAS, the Parks Commission held a public hearing on the Introduction ai�d Implementation
sections on December 19, 2�08, notice of which was dufy given in the Saint Paui Legal Ledger on
November 24, 2008; and
WHEREAS, the Pfanning Commission recommended changes to the Introduction and
Implementation sections after considering public comment; and
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WHEREAS, the Planning Commission and the Mayor hereby recommend adoption by the City
Council of the Introduction and Implementation sections of the Saint Paul Comprehensive Plan.
NOW, THEREFORE, BE IT RESOLVED that the City Council adopt the Introduction and
Implementation sections of the Saint Pau! Comprehensive Pian, contingent on further review by
adjacent communities and the Metropolitan Council; and
BE IT FURTHER RESOLVED that these Introduction and Imalementation sections of the
Saint Paul Comprehensive Plan replace the existina Summarv and General Policv and
Implementation sections, adopted on Januarv 9, 2002.
Bostrom
Carter
Stazk
Thune
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Adopted by Council: Date
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Adoption Certified by Counci Secretary
By: �
Approved b yor. Date ��2— Gf
By:
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R ts�d b D p of:
Approved by the Office of Financial Services
By:
Approved py C Attomey
By: _�/�'t�n? /— Z��V`
Approved y Mayor for Submissio�to Council
By: �s� 7dC,c'-/. �__—
� Green Sheet Green Sheet
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Green Sheet Green Sheet Green Sheet Green Sheet
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DepartmenVOfficelCouncii: Date Initiated:
P E _PlanningBECOnomic 08JAN-09 Green Sheet NO: 3065795
Development
Contact Person & Phone: Deoartmerit Sent To Person InitiaVDate
P0t1nV SitTllSOn � 0 lannin & Econemic Develo me �
6-6554 1 lanuin & Ewnomic Develo me Lam Soderholm F-- l
�� 2 lanuin &EconomicDevelo me DirecWr
Must Be on Council Agenda by (Date): Numbef 3 " Attorne Pe[er Warner 'L ` w l
04-FEB-09 For
Routing 4 or's Office Ma or
Doa Type: RESOLUTION Order 5 ouncil Kath Lan President
6 itv Clerk Ci Clerk
E•Oocument Required: N 7 lanniu & Ec000mic Develo me Ori 'natiu De artment
Document Contact:
Contact Phone:
Total # of Signature Pages J_ (Clip All Locations for Signature)
Action Requested:
To adopt Introduction and Implementarion sections of the Saint Paul Comprehensive Plan.
Recommendations� Approve (A) or Reject (R): Personal Service Controcts Must Answer the Foilowing Questions:
__�_, Planni�g Commission 1 Has this personffirm ever worked under a contract tor this departmenfl
CIB Committee Yes No
Civil Service Commission 2. Has this person�rm ever been a city employee?
Yes No
3. Does this personffirm possess a skili not normally possessed by any
current city employee?
Yes No
6cplain all yes answers on separate sheet and attach to green sheet.
Initiating Problem, Issues, Opportunity (Who, What, When, Where, Why):
State law requires update of City's Comprehensive Plan, to be submitted to Melropolitan Council.
Ativantages If Approved:
City will comply with STate law.
Disadvantages If Approved:
None
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Disadvantages {f Not Approved:
City will not be in compliance. �� � � ����
Total Amount of
Trensaction: CosVRevenue Budgeted:
Funding Source: ActiviTy Number:
Financial {nformation:
(F�cplain)
January 8, 2009 12:05 PM Page'I
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(�'I'I'Y ��'• S`A�T'I' PA�. 39Q City Ha11 Telephone: 651-266-8510
Chrisropher B. Coleman, Mayor IS West Kellogg Boulee�ard Facsrmile. 651-266-8513
Saint Paut, MN 55102
7anuary 22, 2009
Council President Kathry Lantry
and members of the City Council
320 C City Hall
Saint Paul, MN 55102
Dear Council President Lantry and Councilmembers:
It is my pleasure to transmit to you the Introduction and Implementation sections of the Saint Paul
Comprehensive Plan. The Introduction and Implementation sections, along with the six chapters
in the document, will comply with state law that the City update its comprehensive plan every 10
years.
The Introduction and Implementation sections were prepared by Planning and Economic
Development Department staff under the direction of the Comprehensive Plaiming Comnuttee.
T'ne Introduction and Implementation sections inciude the following:
• The legal framework for the preparation of the Comprehensive Plan
• A description of the Metropolitan Council's growth targets for Saint Paul
• The major trends affecting the city
• A description of the sustainability theme and its three components — environmental,
economic, and social — that underlies the policies in each of the six chapters of the
document
• The action steps the City will undertake to implement the policies in the document
Once adopted, the Comprehensive Plan will guide development and revitalization of Saint Paul
for the next l0 years as the city grows while, at the same time, retains what has made it unique for
approximately 150 years.
The Planning Commision has reviewed the Introduction and Implementation sections, held a
public hearing and recommends adoption. I concur with the Commission's recommendation.
Sincerely,
�i22�u�u, ,� �b'iGt`.°-�
Christopher B. Coleman
Mayor
Enclosure
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city of saint paul
pianning commission resofution
fite number os-or
date Januarv 16, 2009
Sainf Paul Comprehensive P(an
RESOLUTION
RECOMMENDATION TO ADOPT
THE INTRODUCTION AND IMPLEMENTATION SECTIONS
OF THE COMPREHENSIVE PLAN
WHEREAS, Minnesota Statutes 462.353, subd. 1, grants a municipality the authority to
prepare a comprehensive plan, which is defined in Minnesota Statutes 462.352, subd. 5 as "a
compilation of policy statements, goals, standards, and maps for guiding the physicai, social and
economic development, both private and public, of the municipality and its environs. ..."
WNEREAS, Minnesota Statutes 473.856 requires that municipalities prepare
comprehensive plans consistent with the development guide and the metropoiitan system
statements adopted by the Metropolitan Council; and
and
WHEREAS, Minnesota Statutes 473.859 details the content of the comprehensive plan;
WHEREAS, Minnesota Statutes 473.864, subd. 2, requires that municipalities review and
update as appropriate thgir comprehensive plans every 10 years and submit them to the
Metropolitan Council for review; and
WHEREAS, Section 107.02 of the City of Saint Paul administrative code authorizes the
Planning Commission to organize and facilitate the preparation of the Comprehensive Plan and
any subsequent updates and to transmit its recommend to the Mayor and tQ the Gity Council;
and
moved by Donnellv-Cohen
seconded by Nelson
in favor Unanimous
against
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Planning Commission Resolution
Saint Pau! Comprehensive Plan — Introduction and Implementation secSons
Page 2
WHEREAS, Section 107.04 of the City of Saint Paul administratiye code authorizes the
Planning Commission to appoint task forces as advisory bodies to study technical issues
identified by the commission and to report their findings to the commission for its consideration;
and
WHEREAS, the Comprehensive Pianning Committee of the Planning Commission in
January 2006 began the coordination of tasks necessary to prepare the Comprehensive Plan
update; and
WHEREAS, the Planning Commission held a public hearing on the Introduction and
Implementation sections on December 19, 2008, notice of which was duly given in the Saint Paul
Legal Ledges on November 24, 2008; and
WHEREAS, the Planning Commission recommended changes to the Introduction and .
Implementation sections after considering public comment.
NOW, THEREFORE, BE IT RESOLVED, that the Planning Commission hereby
recommends adoption by the City Council of the Introduction and Implementation sections of the
Saint Paul Comprehensive Plan update; and
BE IT FURTHER RESOLVED, that the Planning Commission adoption is contingent on
further review by adjacent communities and the Metropolitan Councif.
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lntroduction
The Saint Paul Comprehensive Plan
Planning Commission Draft
Introduction is the executive summary of the draft Saint Paul Comprehensive Plan
also describes the leg I fr mework for the document. It was approved by the Planning
Commis ion on �D Qo and is scheduled for a Public Hearing at the City Council
on . omments and questions about the Introduction can be directed to
penelooe.si ison(a�ci stpaul.mn us
Revised 1/8J09
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Table of Contents
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lntrodudion
What is a comprehensive plan?
Contents ofthe Saint Paul Comprehensive Plan
Legal Premework
MetropolRan Counci) growth targets
Saint Paul and the comprehensive plan:
the setting, majortrends, and sustaining the city
Setting: the river, the land, and Saint Paul's earfy history
Major trends facing Saint Paul
Sustaining SaintPaulforthefuture
Implementing the Saint Paul Comprehensive Plan
P{anning process
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Introduction
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What is a comprehensive plan?
A comprehensive plan isthe city's`blueprinY'for guiding development in ways ihat
recognize Saint Paul's his[ory, integrate emerging irends, and lay the foundation for
responding both to those trends and to changes anticipated in coming years.
The SaintPau/ Comprehensive Plan reflects the combined efforts of the Mayor, City
Council members, the Planning Commission, the Parks Commission, the Heritage
Preservation Commission, and approximately 150 people who served on six commu-
nity-based task forces.
The Saint Paul Comprehensive Plan focuses on the built environment, or the
arrangement of a city's component parts-land, streets, and buildings-and the
Theword"city'hastwomeanings.Asa infrastructurethatsupportsthem.ltisaphysicalplan.lmplicitly,however,theplan
legal document, a plan is the compila- is not about land and buildings but about the people who live and work in the
tion of policies adopted by che Ciry, or city.Thus, policies in a land use plan are intended to foster the creation ofjobs so
the municipal corporation.The other city, that residents can earn income. A parks plan focuses on recreational facilities where
which is notcapitalized, is Saint Paul,the �hildren can play safefy. Transportation policie5 are geared toward ensuring that
geographic area divided into neighbor- people have the means to get between home,job, and services. In short, underly-
hoods and populated with the people ing the strategies and policies in the plan is a concern for the social and economic
who live, work, and play here.
well-being ofthose who live and work in Saint Paul.
ConYents of the Saint Paul Comprehensive Plan
The SaintPau/ ComprehensivePlan includes six chapters- Land Use, Transportation,
Parfcs, Housi�g, Historic Preservation, and Water-as well as other adopYed city-
• wide plans and plans focusing on specific areas of the city. They include the Central
ConidorDevelopment5trotegy, the Saint Pau/ Downtown Development5trategy, and
more than 40 small area plans, district plans, and special focus plans.
The IntroducYion, in part, describes growth targets established for Saint Paul bythe
Metropolitan Council and overarching trendz that will influence Saint Paul's future.
Each ofthe six chapters in this document includes: an introduction that describes
the setting forthe plan, the keytrends affecting the policies, and brief descriptions
ofthe strategies; strategies and the policies. A generel implementation plan, as well
as implementation steps from the six chapters, are included in the Implementation
section.
The Land Use chapter describes an a pproach for directi ng growth to a reas of the city
well-served by transit, including downtown, the Central Corridor, Neighborhood
Centers, and Corridors. It also includes policies designed to support the creation of
jobs centers.The strategies are:
• Target growth in unique communities
• Provide land forjobs
• Promote aesthetics and development standards
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The Transportation chapter focuses on the creation of a multi-modal transporta-
tion system, as wel! as the construction and maintenance of streets so they are
safer for all users, including pedestrians, bicyclists, transit pairons, and motorists.
The strategies are:
• Provide a safe and wel�-maintained system
• Enhance balance and choice
• Support active 1'rfestyles and a healthy environment
• Enhance and connect neighborhoods
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Tfie Parks and Recreation chapter focuses on creating opportunities for heafthy �
activities and programs for ensuring that park resources are protected.The strate-
gies are:
• Promote active lifestyles
- Create vibrant places
• Promote a vital environment
• Respond creatively to change
• Innovate with every decision
• Connecttheentirecity
The Housing chapter includes policies for the development of new housing and
the preservation of existing housing in established residential neighborhoods.
Policies intended to foster the production of affordable housing are also included.
The strategies are:
• Build upon Saint Paul's strengths in the evolving metropolitan housing
market
• Preserve and promote established neighhorhoods
• Ensure the availability of affordable housing across the city
The Historic Preservation chapter includes policies designed to protect and
promote the City's cultural and historical resources, as well as to guide the work of
the Heritage Preservation Commission.The strategies are:
• Be a leader for historic preservation in Saint Paul
• Integrate historic preservation into the broader planning processes
• Identify, evaluate and designate historic resources
• Preserve and protect historic resources
• Furthereconomicdevelopmentandsustainabilitythroughpreservation
• Preserve areas with unique architectural and spatial characteristics �
• Provide opportunities for education and outreach
The Water Resources Management chapter focuses on maintaining the ciTy's water
supply and sewer system and on ensuring clean waSer in lakes and rivers.The strat-
egies are:
• Ensure a safe and affordable water supply system
• Reduce pollutant loads to water bodies
• Operate and maintain a cost effective sanitary sewer infrartructure
Legal framework
The state Metropolitan Wnd Planning Act requires that cities and other local
governments update their comprehensive plans every 10 years consistent with
the Metropolitan Council's RegionalDevelopmentFiameworkand its system state-
ments for transportation, parks, and water. Assuring that cities grow in ways that
use regional systems efficiently and that population and employment growth is
consistent with the Council's forecasts is the purpose of the plan update process.
Saint Paul is designated as a"developed community" in the Council's 2030 Regional
Development Framewo�k A developed commt�nity maintains and improves its
existing infrastructure, such as sewers and roads; redevelops land to provide for
additional growth of population and employment; and provides for additional
growth zhat integrates land uses (i.e., mixed use development) and at locations
along transit corridors.
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City of Saint Paul Comprehensive Plan �
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� Preparation of the Saint Pau/ Comprehensive P/an provides an opportunity for the
cityto position itselfto respond to emerging trends, such as an increasingly diverse
population and an aging population, andto pressures, including changes wrought
by energy costs and the global economy. It is also an opportunity for the city to
restate its commitment to be part of a regional growth management strategy that
has strengthening the urban core as one of its basic goals.
Metropolitan Council growtFi targeu
Saint Paul fs about 56 square miles in size, most of it in stable neighborhoods of
largely single family and duplex housing. Policies in the SaintPau/ Comprehensive
P/an provide for smaller amounts of growth in these neighborhoods while, at the
same time, anticipating higher densiry mixed use development in downtown, the
Central Corridor, Corridors, and Neighborhood Centers. Growth in these areas (See
Figure B in the Land Use chapter) will satisfy the Metropoiitan Council's 2030 targets
for Saint Paul population, households, and employment.The targets, compared to
the 2000 figures, assume a population increase of 44,16�; an inaease of 2�,890
households; and an increase of 36,000 in employment.
Population
Households
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Employment
2000 (actual)
286,840
112,109
184,589
2010
305,000
120,000
196,b00
aozo
320,000
127,000
210,000
zoso
331,OQ0
733,000
22�,600
Saint Paul and the comprehensive plan. the setting, major trends, and
sustaining the city
Setting: the river, the land, and Saint Paul's early history
The Mississippi River, Saint Paul's location on the river, and topography shaped by
ancient gfaciers have had a profound influence on the city and its patterns ofdevel-
opment, beginning with the first settlement and extending into the 21st Century.
Saint Paul was originally settled by fur traders, who were ordered out of cabins near
the walls of Fort Snelling when its commandant in the early 1 S40s became exas-
perated with them for selling liquor to native Americans and soldiers. The traders
moved downstream to Pig's Eye Landing, where Pierre"Pig's Eye"Parrant was trad-
ing furs from a cave. A year later the fur traders renamed their settlement to Saint
Paul, the name of the log chapel built on top of the bluff by Faiher Lucien Galtier.
Saint Paul, situated high on bluffs overlooking the Mississippi River, is at the head of
river navigation because movement further upstream is blocked bythe St. Anthony
Falls. Moreover, the shallow Minnesota River has treacherous shoals and sandbars.
WiTh access Yo the countryside in three directions, Saint Pauf in its early years was
the headquarters of the fur trade and the river terminus of the oxcart trail that ran
northwest to settlements in the Red River Valley.
The railroads were instrumental in the creation oftwo cities along the river. It was
the railroads' need for separate power stations, one near St. Anthony Falls and the
milis and a second one near the head of navigation in Saint Paul, which lead to the
creation of two cities. One central power station during the horse-and-buggy era
could not serve both areas —the mills and the waterfront.The railroads connected
Saint Paul and Minneapolis to eastern cities and the plains to the west, with the
principal products timber and lumber, wheat and flour.
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State aid to Ixal governme'Ks
Locai Government Assistance (CGA) is catcWated
bymmparingadbJstazbasetoiues[imaTed '
spending needs. Qties with insuffiaent capaciry
for loral revenues receive state aid, which was
for many years adjusted annually for inFlation. In
2003, however, the Governor and ihe Legislature
apprwed changes in the funding fortnula and
funding levels tha; in the following two years,
resulted in a 30 percent reduction in Saint Paul's
allootion. An increaze in 2006 made up forsome
ofthe decrease, but the allocation was not large
enough to retoup the full reduction Further
reduttions are anticipated.
Money to pay for Saint Paul services - examples
are police and firefighters, parks and recreation
centers, libaries, snow removal, street maiMe-
nance- has dxlined in recent years.The money
comes primarily from property taxes, state aid
to loral govemmentr, and user fees for dirM
servi<es. Since the s[ate aid allocation was reduced
in 2003, the Ciry budget has incurred various
service reductions, reshucturing of services, and
an irtcreased relianceonorzriime revenues.There
has also been a reduced investment in the Citys
infrastruaure, resulting in a backlog of deferred
maintenance.
Reduaions in state aid ailocations have pla<ed a
heavier burden on the role that propertytax reve-
nues play in paying for CiTy services.The amounT
an iridividual pays in property tazes depends on
two primary faROrs -the financial needs of local
gwemments, induding the Ciry, the CounTy, and
the local schooi district, as well as the value of
an individual property compared to the overall
� base. New growth -whether single family or
multifamily residential, commercial, or indus[rial -
results in an expanded tax base, which means the
amount lo�l governments levy in Laxes is spread
over more propertiez In addi[ion, development at
higher densi[ies and wmmerciallndumial uses
rypiwlly contribute rtwre to the taz base bemuse
of the higher relative value ofthe property and
inficacies ofthemxcode
Saint Paul has always been a city of neighborhoods, each one characterized by the
immig2nts who settied them. For example, the Swedes, then the Irish and Italians,
moved into Railroad Island and Swede Hollow.The earliest inhabitants on the West
Side and in Frogtown were French-Canadian voyageurs involved in the fur trade.
Germans and Irish settled on the West Side, followed by Jewish immigranss from
eastern Europe and Russia. For many years there was an Italian neighborhood was
on the Upper! anding; it was later abandoned because of periodic flooding. People
from Scandinavian countries and Germany settled throughout the ciry. African
Americans, who began arriving when the railroads were developed, lived primar-
ily in the Rondo neighborhood until Yhe 7960s, when many were displaced during
the construdion of I-94. More recently, Mexicans began arriving early in the 20th
Century and, in recent decades, Vietnamese and Hmong in the 197os, and Somalis
in xhe 7990s.
Major trends facing Saint Paul
Circumstances outside the City's purview have influenced policies in the compre-
hensive plan and will affect their impiementation. Each of the six chapters in this
document pinpoints trends affecting components of Saint Paul's built environ-
ment. eeyond that, there are three overarching trends that shape, and will contin ue
to shape, Saint Paul during the neut decade. Many policies in the comprehensive
plan are responses to these three trends, as well as part of a broad efforc to ensure
the sustainability of the city.
Rising energy costs and climate change
Both energy costs and dimate change are having profound effects on how cities
function. The cost of energy is fluctuating dramatically. This impacts every facet of
contemporary life-transportation, housing costs, and the price of virtually every
product sold for personal, commercial, or industrial consumption. Energy consump-
tion has resulted in greenhouse gas emissions that are altering the environment of
Earth and aff.ecting people's health and lifestyles.
Declining financial resources to pay for City services
Changing demographics
Census figures describe major changes in Saint Paul's population. The changes
began in the fate 1980s and accelerated during the 7990s and early 2000s:
• The population is more diverse. More than a generation ago, Saint Paul's
and Minnesota's populations were largely white. That changed significantly
during the last 10-15 years as ethnic communities- particularly Hispanic,
Hmong, and Somali - have grown, often through immigration.
� The population is aging. Baby boomers are a large segment of the popu-
fation and, as tfiey grow older, tfieir needs and desires wi(I affect how
neighborhoods fundion.
• Theincomegapiswidening.Therearemorepeopleinthehighincomeand
fow income groups,wfiile the middCe dass is becoming smaller.This affects
all elements of the ciTy's economy, including housing, the workplace, and
commerce.
Sustaining Saint Paul for the future
The character of Saint Paul lies in iu people, who, through the decades, have
tended homes, worked, raised families, and played in its neighborf�oods. ihough
the comprehensive plan focuses on the built environment, its underlying commit-
ment is to preserve the characteristics that have nuttured Saint Paul's residenu for
afmos[ 7 7Qyears so they can thr(ve. Its goal is to keep Saint Pauf vibrent and healthy
without compromising its high quality of life or changing iu spirit.
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CityofSaintPaul ComprehensivePlan �
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� ien Vrinciplesfordtydevelopment Sustaining Saint Paul and its people is critical to accomplishing this goal, so that
TheseprinUpleswereadoptedin 7998astheframe- fUtUf2 J2f7EfatlOnS IlaV2 dt 12d5t d5 OlUCF1 or more, opportunity as the current
workforpublicandprivatedevelopmentac[iv¢ies generation.Sustaina6ility,theoveracchingthemeoftheComprehensivePlan,has
in Saint Paui. First written Por the SaintPaul on the
Miss�ssippiDevelopmentFramework,whichfaused threeinter-relatedparts:
on downtovm and the central riverfront, they have
been incorporated inin planning documenufor Economic sustainability. The city, as a place to live, work, and play, thrives.
�eignbo�hoodsacrosscnecay. Workforce development, corporations, and entrepreneurs contribute to
i. [vokeasenseofpiace. a strong economic base. Quality schools, solid housing stock, health care
2. Restoreand es[ablish the unique urban ecology.
3. Investinthepublicrealm. SENiCeS, public buildings and infrastructure, as well as unique amenities
4. Broadenthe mixofland uses. dttl'aCt f7ew poPUlatiOnS, while redevelopment renews the built environment
s. improveconnectivtry. and increases tax revenues. Enhanced transportation provides easy access to
5. Enmretha[buildingssupportbroaderciry- aIIPdIt50fth2City,
building goals.
�. eu�ldonexis[inystren9cns. Environmental sustainability. Buildings, open spaces, and infrastructure
8. Preserveandenhanceheritageresource:
9. Provideabalancednenvorkformovement. dYe C�ESig�eC� Wlth dtTE�tlOn t0 eCO�OgiCd� 5y5tem5 dnd d Ii9htenVl10nI71entd�
10. Foster publicsafeTy footprint. Buildings are rehabilitated and constructed with reused and renew-
able materials and utilize technologies thai are energy efficient and promote
conservation.
Social susiainability.The physica{ design of the city and its neighborhoods, its
amenities and community-based activities draw people together and promote
equal opportuniry, Enrichment through lifelong learning, healthy lifestyles,
and civic engagement contribute to quality of life in each of the city's neigh-
borhoods and the larger community.
These icons illustrate the three elements of the sustainability theme. Throughout _
the comprehensive plan, they are used to mark policies specifically associated with
one, or more, sustainability elements. T
� Each element of the sustainability theme has multiple components, reflecting the a
complex nature of an older core city. Moreover, there is a multipliaty of organiza- o
tions and people, in addition to the City, which contribute to realizing the potential '
of each element of the sustainabi lity theme. The strategies of the six cha pters of the
Saint Paul Comprehensive Plan, for example, illustrate how these elements can be
used to guide the growth of the city as its buildings and land are redeveloped.
The City has been working on programs and projects that advance each sustain-
ability element.The economic development strategy furthers aspects of economic
sustainability, such as promoting strong businesses and a skilled workforce.
Developed in collaboration with the Capital City Partnership, Saint Paul Port
Authority, Saint Paul Riverfront Corporation, and the Saint Paul Area Chamber of
Commerce, it complements policies in the Land Use chapter. Sustainable Saint
Paul relates to environmental sustainability and includes a wide range of programs
and projects That focus on carbon dioxide reduction activities. The program was
initiated both by the CiTy and environmenYal organizations. Social sustainabil-
ity is articulated in the human development goals, which have been borrowed
from Twin Cities Compass, prepared by Wilder Research in collaboration with the
Itasca Project and several foundaTions.Twin Cities Compass, in part, measures the
region's collective progress toward human and economic development, with the
intention of inspiring action. These City efforts and collaborations are described in
Figure A.
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Figure A. E�cisting programs that further the theme of sustainability
ECONOMIC DEVELOPMENT STRATEGY t SUSTAINABLE SAINT PAUL
For a city to be sus[ainable xonomically,
there must be wealth enhancement and job
veation. Achieving these objectives, however,
Iies largely outside the influence of govem-
ment. Businesses createjobs. Educated and
skitted residen[s eam rrealth.The City's role
is creating a dimate mnducive to economic
selfsufficiency and growth byfortering em-
nomic development activities and attracting
businesses to Saint Paul.The challenges at the
beginning ofthe 21 rt Century are significant,
even daunting, as the country shifts from
manufacturing to an information-based
economy, with bus'messes and labor markeis
changing dramatically as a result.The goal of
the strategy is to promote high value-added
economic development that supports business
and provides opportunities for employment.
A healthier human and natural environ-
ment is a critical component of a livable
city. Standards for dean air and watet
were established by national legislation
decades ago, and the positive resulu
are quantifrable. Much remained to be
accomplished, howevec In mcent years,
the stale and the impact of dwindling
energy resources and climate change
have thrust nations, cities, and people
into more complex efforts to pmtec[
the natural environmenLTheseeffotts,
focused on energy and concentrated on
mnservation and efficiency, are both
broader than anything envisioned when
clean air and water legislatlon was first
enacted. At the same time, tfiese recent
efforts are far more fine-grained.
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TWIN CITIES COMPASS
Opportunities for people to lead successful,
rewarding lives are integral to social sustain-
abiliry. The City can play an effettive role in
human developmentthrough itr services to
individuals-e.g., public safety, libraries, and
recreation - and by making physical develop-
ment decisions with human development
goals in mind. Human development goals
forthe Comprehensive Plan are borrowed,
vaith approval, from Twin Cities Compass
(tccompass.org), a compilation of key com-
munity indicators, was created to measure the
region4 collective progress toward human
and economic development and, then, to
inspire ac[ion. Saint Paul will monitor the indi-
cators associated with each of these goals and
determine which data to use to help policy
makers respond effeaively and efficienxly
tothe gaps in people's lives and to allowthe
integration of human development goals with
the Citys physical development policies.
The rtrategy includes six broad initiatives The Saint Paul City Council in 2005 These human development goals are �
designed to create a dimaie for investment and initiaied Sustainable Saint Paul, which reflected in policies in the Housing,
to enhance workforce readiness and training: focuses on carbon dioxide reduction Transportation, and Parks and Recreation
Business retention and expansion. Euisling activities: chapters ofthe Comprehensive Plan:
firms are the greatest source of potential Energy-efficient retrofits for existing City Civic engagement.The city will foster a �
growch. Signficant resources will be used to facilities. climate of inclusion that encourages active
reuin businesses and to build the systems Clean and renewable ene su participation from everyone living in our
neededtofostertheirgrowth. � PPry' community.
Business amaction. Industries with the great-
est potential forjob creation will be strategi-
cally targeted, building parcicularly on Saint
Paul's e�cisting sector strengths. Also targeted
will be industries less likely to be out-sourced
and indusiries henefiting from efforts to
invest in itr human, physical, and cultural
infrastructure.
InvertSointPauL InvestSaintPoul iz a neighbor-
hood improvement and maintenance rtrategy
that addresses the deleterious impact brought
about by the substantial numbers of vacant
and foreclosed properties, primarily housing.
Streamlined developmeni process. A smooth
development and permitting process, where
the rules are dear, mnsistently applied, and
effioently implemented, is aitica) to facilhating
investmentand supporting entrepreneurship.
Workforce development. An educated and
skilled workforce is one ofthe most important
elements in efforts to attract businesses and
help them grow and prosper.
Downtown revitaliution. A vital downtown
provides both a vibrant placem live and work
and an important recruiting tool for businesses
trying to attract the most qualified workers.
Green development
GreenGatherings.
Green manufacturing initiative.
Green space and urhan reforestation.
National Great River Park.
Recycfing and waste reduc[ion.
Transportation options - alternative
fuefs and vehicies.
Water resources management.
Early childhood. The city's young children
enterschoolreadytolearn.
Economy and workforce. A strong regional
and local economy encourages business
investment and provides employment oppor-
tunities for workers at all skill levels.
Education. All students graduate from high
school and are prepared for post-secondary
education.
Health. All people living in Saint Paul will
haveoptimum physical and mental health.
Housing. People at all income levels have
housing opportunities throughout the city
and the East Metro region.
Public safety.l'he city will be a safe place to
live and work.
Trensportation.TheTwin Cities and Saint
Paulwillhavesafe economi4energy-effi-
cient alternatives to move people and goods
throughoutthe region.
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Implementing the Comprehensive Plan
1.7 The Citywill undertake action steps in the implementation sections of the
six chapters and in the Implementation section.
Planning process
Preparation of the Saint Paul Comprehensive Plan began in Autumn 2006 and
early �nter 2007, when the Planning Commission appointed task forces to study
the issues in each subject area. In all, each of the six task forces was comprised
of people with expertise in ihe subjed, as well as residents knowledgeab{e about
Saint Paul and its communities.
Prior to the task force phase, the Plan�ing Commission prepared two documents
designed to inform the process. A Lens for the Future: Saint Paul for the Next 25
Years describes how Saint Paul has evolved during the previous 25 years and lays
out the challenges for the neut 25 years, including how the unique characteristics
of the city are a supporting mechanism for dealing with the challenges facing the
city.The Scoping Report is an analysis of the policies in the previous comprehen-
sive plan, as well as a description of the overarching issues that, at the time it was
written, were expected to shape the policies in the plan update.
7he Planning Commission held public hearings on each chapter. The Parks
Commission held a separate public hearing on the Parks chapter, while the Heritage
Preservation Commission and the Planning Commission held ajoint public hearing
on the Historic Preservation chapter.
(INSERT COMMISSION AND COUNCIL ADOPTION)
U `f - /`�o'�-
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lmplementation
The Saint Paul Comprehensive Plan
Planning Commissi Draft
Implementation describes the Iegal framework for implementing the draft Saint Paul Comprehensive
� Plan. It was approved by the Planning Commission on 1 � l(a l o p and is scheduled for a
Public Hearing at the City Council on Z� 4� CR . Comments and questions about the Introduction
can be directed to �enelooe.simisonla�ci.stoaul.mn.us.
Revised 1 /8/09
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Implementation
I 3�
Objective of implementation
High priorities for action
Legal requirements
Official controls
Capital improvement program
Housing implementation program
Other implementation tools
Small Area Plans
Economic development
Site plan review
Intergovernmental grants
Saint Paul in the metropolitan region
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Implementation
Objective of implementation
This section outlines how the policies in the SaintGaul Comprehensive P/an will be
implemented. State statute requires thatthe City's ordinances, programs, and fiscal
tools be consistent wfth the policies in the comprehensive plan. This is one objec-
tive of an implementation program.
Just as importantly, action steps are critical to Ciry efforts connecting the pol icies of
individual chapterswith each other.lt is achieving this nexus between componenu
of the builc environment - for examp{e, land use, transportation, and housing -
that wil l be instrumental in implementing the Saint Paul Comprehensive Plon.
Each ofthe six chapters in this document includes a sedion outlining action steps
for implementing the policies in the chapter:
INSERT PAGE NUMBERS OF IMPLEMENTATION SECTIONS IN SIX CHAPTERS
High priorities for action
Certain imperatives stand out for implementation of the SaintPaul Comprehensive
Plan, high priorities for action without which Saint Paul's future cannot be real-
ized.These high priorities are also important for the city's ability to be an effective
collaborator in the region (see pp. 1.
• Providing housing choices for everyone. As Saint Paul's demographics
change, particularly as the numbers of couples without children, empty
nesters, and large immigrant families increase, it is critical to have a diverse
housing stock in mixed income communities.
� • Strengtheningneighborhoodshurtbymortgageforeclosures,Foreclosures
and the vacant houses they produce make families more vulnerable and �
jeopardize the future of affected communities. �
3
• Capitalizing on the potential of the Central Corridor. The construction of ;
light reiI transit in the Central Corridor provides opportunities for the city »
torealizeitspotentialasacomplex,sophisticatedurbancenterwithdenser =
housing and employment centers.
• Laying the foundation for more jobs that pay a living wage. The City and
its development partners must provide for land, cleaned of contamination
from decades ago and with the infrastructure needed for the information-
based economy, so that businesses are able to establish themselves and
grow, and providejobs with a living wage.
• Maintaining public infrastructure and facilities. Saint Paul has a sizeable
investment in facilities and infrastrudure - streets, utilities, parks a nd recre-
aTion centers, and libreries are examples. Forthe cityto remain vibrant and
be a vigorous urban center, these must be well maintained to extend their
useful life.
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• Securing an expanded transit system. Saint Paul needs a transit system that
provides more frequent service and more routes through parts of the city
that are not well served. There are greater numbers of transit dependent
people living in the city and the cost of energy is making vehicular travel
too expensive.
�_�
Pursuing projeds and programs to reduce the carbon footprint, Although �
reducing the carbon footprint involves global and national strategies, the
City can contribute to the effort by managing development activities so that
buildings are constructed to reduce the amount of energy used during their
operation. Moreover, the City can encourage residenu arid empioyees to
reduce their use of vehicles and to rely more on trensit, in order to reduce
the emissions that contribute to global warming.
Providing opportunities that enrich residents' lives. Schools, parks and recre-
ation centers, and libraries aIl create avenues for people of all age groups to
pursue interests and desires for learning, for play, and for participation in the
community.
Protecting natural resources. The Mississippi River runs through Saint Paul
and is the most obvious naturol resource in the city. There are also lakes
— Como, Phalen, and Beaver— as well as dozens of parks, thousands of boule-
vard trees, and miles of trails. All contribute to the ecology ofthe city and to
enriching the lives of residents.
Legal requirements
State law mandates the comprehensive plan include specific features and compo-
nents related to implementation:
• Official controls.These are ordinances, fiscal tools, and other programs.
• Capital Improvement Program. The five-year CIP is a list of infrastructure
projects, including estimated costs and funding sources.
• Housing implementation program. It includes the programs and fiscal tools
that implementthe housing policies.
Oihcialcontrols �
Zoning ordinance.The Zoning Ordinance will be revised to be consistentwith the
plan, as required by state law. A number of zoning studies, each intended to imple-
ment specific policies in the Land Use, Housing, and Parks chapters, are listed in
the implementation sections of these chapters. The ordinance specifically deals
with key natural resource issues, including, for example, erosion, steep slopes, and
tree preservation. Studies identified in the Land Use chapter will specifically focus
on permitted densities in existing or new districts that can be used to achieve
growth targets for the city. Zoning regulations for the Critical Area, implementing
the Mississippi RiverCorridor Plan (adopted 2002), have been recommended bythe
Planning Commission and are pending beforethe Council.
Subdivision ordinance. The subdivision ordinance provides for the orderly devel-
opment of land. Provisions in the ordinance also address such issues as providing
adequate public facilities, protecting ecological features, and promoting the devel-
opment of affordable housing.
Heritage preservation ordinance. Heritage preservation is provided for in the
Preservation Ordinance, Chapters 73 and 74 ofthe Saint Paul Legislative Code, which
is authorized by state statutes, including Municipal Heritage Preservation (Section
471_793) and the Minnesota Historic Distrid Ac[ of 7977. The ordinance establishes
the Heritage Preservation Commission and gives it the authority to survey historic
resources, designate historic resources, and review alterations to designated prop-
erties. In 1984 the �ity became a Cercifred Local Government, part of the Flational
Historic Preservation Program, meaning Saint Paul's commission meets federal
and state standards. The City also works with the State Historic Preservation Office �
(SHPO) for federal and state review of proposed projects, inc(uding the Section 706
process and environmental reviews.The Historic Preservation chapter rxommends
revisions to the ordinance and its provisions.
City of Saint Paul Comprehensive Plan �
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• Capital Improvement Bonds (CIB) provide the mort basic funding foryearly
investme�t in capital facility improvements.
Fiscal tools. The City uses three fiscal tools to fund development projects and capi-
tal improvements:
• Tax Increment Financing (Tl� is used for brownfields remediation and
re-development of a core city. Extraordinary public costs are needed to
remove blight that otherwise prevents redevelopment and job creation.
However, legislative restrictions limit the use of TIF for economic develop-
ment, as welf as redevelopment and environmental remediation. The City
supports changes in the regulations to better facilitate the use of TIF for
redevelopment and brownfields remediation.
• The Sales Tax Revitalization Program (STAR), also known as the'"/z cent
sales tax program" is a flexible funding program that is intended to provide
support for RiverCentre, culturol activities, and community-based and
neighborhood orienied development opportunities through open and
public competitive processes. The STAR board, as well as the Mayor and the
City Council in their reviews, considers Comprehensive Plan policies when
awarding STAR funds forthese projects.
Options for funding City development projects and capital improvements have
become more limited in the last decade.To address this issue, the City must develop
approaches and mechanisms that respond to the loss of fiscal tools and declining
resources. To that end, the Planning Commission will establish an Infrastructure
Task Force to study innovative financing for municipal infrastructure.The taskforce,
staffedjointly by the departments of Planning and Economic Development, Public
Works, Parks, and Financial Services, will be comprised of citizens with expertise in
the fields of infrastructure and finance, as well as community representatives.
3
CapitallmprovementP�og�am (C/P) 3
The City maintains a five-year capital improvement program.The current program ;
for the years 2008-2012, is detailed in Appendix ///. The program is developed »
throughiheCapitallmprovementBudgetprocess,abi-annualprocessthatincludes °_
recommendations from the community-based Capital Improvement Budget (CIB)
Committee, proposals bythe Mayor and approvals bythe Council. Projeds are eligi-
ble if they finance the acquisition and physical development of City-owned land
and buildings and have a useful Iife of at least 10 years. Many of the redevelopment
and neighborhood revitalization proposals in this plan will require capital improve-
ment investments by the City. The CIB process rel ies, in part, on the comprehensive
plan and individual geographic plans to identify capital projects that will further
the objectives in the City's plans.
Housing implementation program
The Housing and Land Use chapters lay out a broad range of programs and tools
intended to implementtheir policies:
• Affordable housing.5trategy 3 ofthe Housing chapter, Ensure the availabil-
ity of affordable housing across the city, includes policies that will facilitate
the construction and preservation of affordable housing and expand hous-
ing options. Moreover, the strategy acknowledges the City's share in the
regional need for lowand moderate income housing and assures, insofaras
possible, given market considerations, the production of fifecycle housing
and housing at all income levels.
• Specific housing programs focused on affordable housing are adminis- •
tered by the Housing and Redevelopment Authority (HRA), assisted by the
Department of Planning and Economic Development (PED).These programs
focus on the development and preservation of affordable housing, the
promotion of private market housing development, and assistance to low and
moderate income households to purchase and rehabilitate housing uniu:
1. Emergencysheltergrants;.
2. Low-incomeHousingTaxCredits(LIHTq;
3. Tax-incrementfinancing (l1F):
4. Multifamily housing revenue bonds;
5. City Living for mortgage loans and home improvement loans;
6. The American Dream down payment initiative;
7. Don'tBorrowTroublecampaign;and
8. Mortgage foredosure prevention program;
• Fiscal tools. The City uses such tools as tax increment financing (TIF) and
revenue bonds to finance housing projeds.
• Official controls. Title 6 of the Saint Paul Legislative Code and Chapter 777
of the Administrative Code provide regulatory guides for housing programs
managed bythe HRA.In addition,theZoning and Subdivision ordinances are
frameworks forthe construction of new housing units, including affordable
and lifecycle housing. In particular, the Traditional Neighborhood zoning
districts include design provisions that fiacilitate higher density housing.
The City enforces codes to regulate the construction, rehabilitation, and mainte-
nance of housing. These national building, electrical, and plumbing codes have
6een adopted by the State of Minnesota, including tfie building, electrical, and
plumbing codes. �
• Higher density development. Both the Housing and Land Use chapters
include policies that guide the development of housing in specific areas of
the city where higher density housing is intended to facilitate the construc-
tion ofaffQrdable housing.
Other implementation tools
Small Area Plans. The comprehensive lan lays out broad approaches on key
elements of the built environment. Its policies are applicable throughout Saint
Paul, but they need to be translated into recommendations that address issues in
specific communities and neighborhoods and that are integrated into small area
plans, district plans, and plans for special districts. The City will continue to adopt
summaries of iu geographic plans as addenda to the Saint Paul Comprehensive
Pian. The summaries will include the policies and action items that are consistent
with the comprehensive plan and relate td the City's development policy. Moreover,
the summaries will identify policies and adion items that refine land use and other
policies for the specific geographic area.
To that end, the City will continue to use, and. strengthen as appropriate, the
following proceduresto prepare small area plans and othergeographic plans:
• Guidelines for the preparation of geogrephic plans, induding coordination
between the City and individual communities, to ensure that the objectives
ofthe comprehensive plan are real'¢ed.
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CityofSaintPaul ComprehensivePlan �
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A strengthened review process to ensure consistencywith the comprehen-
sive plan. Adopted geographic plans are addenda to the comprehensive
plan. Review of each plan will use an interdisciplinary focus by staff from
several City departments to assure that, when they are adopted, discrep-
ancies between them and adopted citywide plans are reconciled so the
comprehensive plan is internally consistent.
Broad participation, induding district councils, mmmunity development
mrporations, bcal businesses, non-profit organizations, and organizations
that reflect Saint Paui's diversity.
This Comprehensive Plan incorporates the policies of adopted small area
plans and distrid plans. Appendix // lists the adopted small area plans and
describes their key features. See Figure A for locations of these planning
areas.
Economicdevelopmen4.TheCity,workingthrough the Housing and Redevelopment
Authority, assists developers with redevelopment, rehabilitation, and contamina-
cion cleanup of commercial properties. In addition, the City also provides financial
and technical assistance to commercial busi nesses, non-profit organizations, devel-
opers, and neighborhood groups.
Site plan review. Site plan review, which is under the authority of the Planning
Commission, is a coordinated, inter-departmental process that considers a range
of development issues, including, but not limited to, zoning, design, utilities, emer-
gency vehide aaess, traffic, stormwater management, parking, and landscaping.
Site plan review considers all development proposals with the exception of single
one and two family residential structures.
� Intergovernmental grants. When a ppropriate, the City seeks fu nding from a variety
of governmental sources for specified redevelopment activities. Sources include, �
forexample,thetaxbaserevitalizationaccountsmanagedbythestateDepartment 3
of Employment and Economic Development and the Metropolitan Council and �
federal funds from the Department of Housinq and Urban Development and the »
Environmental Protection Agency. �
Saint Paul in the metropolitan region
Saint Paul and other urban centers can neither exist nor flourish in the absence
of close working relationships with other cities in the region, as well as with other
government agencies and private, non-profit organ izations. Collaboration between
these entities is critical to implementing the objectives in the Comprehensive Plan
so the city's future can be realized. Moreover, collaboration is necessary because
so many issues cut across municipal boundaries. These issues are complex and
are becoming increasingly so. Resolving them requires government and organi-
zations to work together purposefully and creatively to forge relationships and
devise approaches that may not have been tried previously, or tried previously and
abandoned.
Elements of Saint Paul/metropolitan collaboration are:
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• Continuing the partnership between Saint Paul and Minneapolis.The two �
cities are currently involved in two high profile efforts, reducing the carbon
footprint and dealing with foreclosures. Sustainable Saint Paul is a compen-
dium of projects and programs, many of them replicated in Minneapolis,
to address the climate change issue and institute more green pradices.
The National Community Stabilization Trust — four national organizations
focused on solutions to the foreclosure problem — selected Saint Paul and
Minneapolis as a pilot area for coordinating the acquisition of foreclosed
properties so they can be rented or sold, primarily to low- and moderate-
income families. The work of the trust is funneled through the Minnesota
Foreclosure Partners Council, which includes both cities, the Family
Housing Fund, the Greater MetropoliWn Housing Corporation, Dayton's
Bluff Neighborhood Housing Service, and LISC.
• Beginning a dialogue with first-ring suburbs on concerns they share with
the two core cities. First-ring suburbs face many of the same issues as do
Saint Paul and Minneapolis, including an aging housing stockand the need
for contemporary employment centers for businesses in the information-
based economy.
• Pursuinglegislationthatwillenableurbancenterstopursueredevelopment
vigorously. More intensive use of the existing urban fabric of urban centers
is critical for the success of the region in the 21st Century. Issues such as
climate change and shifts in the economy necessitate that policy makers
find solutions that encourage reinvestment. Saint Paul will pursue changes
to state and federal policies, including a revision of the existing limits on
the use of eminent domain, to enhance the opportunities for core cities and
oldersuburbs. �
• Working with the Legislature and the Metropolitan Council to contain
sprawl. Development at the fringes of the metropolitan area, without atten-
tion to its impact on core cities and first-ring suburbs, has the potential to
dilute efforts to reinvest in the core cities. �
• Securing an expanded, more efficient transit system. Climate change, dwin-
dling energy supplies, and the cost of energy are compelling reasons to
expand the existing transit system, both in the frequency of service and the
numbers of routes.
Restoring the Mississippi River corridoc Minnesota's fivo largest cities lie on
the river, providing a key element of their identities and a focal point for
redevelopment efforts.
Confronting the gaps in the lives of our residents. The Mind the Gap report,
produced by the Itasca Projed in coilaboration with several foundations
based in the metropolitan area, laid bare the discrepancies many residenu
face. Twin Cities Compass, a projed of �Ider Research, is extending the
effort begun in the report by colleding data and organizing them in ways
that government and non-governmental organizations can use to improve
the lives of people who live here.
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CityofSaintPaul ComprehensivePlan m1
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CITY OF SAIN'I' PAUL
Chrit�opher 8. Calempn, .Nuyar
Date:
To
From:
Subject:
PLAIJNING COMMISSION
Brian Alton. Charr
25 Wesr Fourth Srree�
Sum( Paul, :LL�' S5101
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7elephane. bi1-266-6700
Facsrmrle 6A-?28-3220
December23,2008
Comprehensive Planning Committee
Penelope Simison, peneloqe.simison(a�ci.stpaul.mn.us - 651/266-6554
Review of public hearing comments—Introduction and Implementation sections
Background
The Planning Commission held a public hearing on the draft Introduction and Implementation
sections of the Saint Paul Comprehensive Plan, on December 19, 2008. No one spoke. One
email was received; comments were in opposition to the Metropolitan Council growth targets and
to several implementation tools. In addition, Commissioner Gordon raised concerns about the
language in the Implementation section regarding the STAR program.
The minutes of the Planning Commission public hearing will be distributed at the committee
meeting on January 6, 2009.
This memo summarizes the issues raised and presents staff comments and recommendations for
the Committee to consider as it forwards the Introduction and Implementation sections to the full
Planning Commission.
1. Metropolitan Council growth targets
From the Introduction section - Saint Paul is about 56 square miles in size, most of it in stab/e
neighborhoods of largely single family and dupiex housing. Poi�cies in the Comprehensive Plan
provide for smaller amounts of growth in these neighborhoods while, at the same time,
anticipating higher density mixed use development in downtown, the Central Corridor, Corridors,
and Neighborhood Centers. Growth in these areas will satisfy the Metropolitan Council's 2030
targets for Saint Paul population, households, and employment. The targets, compared to the
2000 figures, assume a population increase of 44,160; an increase of 20, 890 households; and an
increase of 36,000 in employment.
The
2000 2010 2020 2030
(actual)
0 286,840 305,000 320,000 331,000
hh 112,109 120,000 127,000 133,000
'obs 184,589 196,600 210,000 220,600
The increases by 2030 over the 2010 figures are:
• population-26,000
. households-13,000
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Comment. Benita Warns, a resident, states Saint Paul's population is declining and cannot
achieve the growth contemplated in the Metropolitan Council's growth targets. She states the
plan must be revised to reflect the population decline in the city.
Staff comment:
The Census Bureau does yearly updates on total population and Saint Paul's population declined
by 20,582 people, to 266,258 between 2000 and 2007. Even so, one of the objectives of the
Comprehensive Plan update is to anticipate growth and prepare for it. There will always be shifts
in population and households, so it is in the city's best interest to assume it will grow. Population
and household growth is needed if a city is to be sustained. A key element in the Comprehensive
Plan is targeting likely growth to areas of Saint Paul where residents, businesses, and employees
will benefit.
Staff recommendation. No change in the growth targets.
2. Tax increment financing as a fiscal tool and use of eminent domain
Fiscal too/s. Tax Increment Financing (TIF) is used for brownfields remediation and re-
development of a core city. Extraordinary public costs are needed to remove blight that otherwise
prevents redevelopment and job creation. However, legislative restrictions limit the use cf T/F not
only for economic development, but also for redevelopment and environmental remediation. The
City supports changes in the regulations to better facilitate the use of TIF for redevelopment and
brownfields remediation.
Comment. Benita Warns, a resident, states the City needs to restrict its use of TIF. TIF should be
used only for 10 years and, then, only in "extreme circumstances." She states further that use of
TIF means mean property owners elsewhere in the city pay higher taxes because the taxes in the
TIF district are used to pay for the improvements. She states changes in eminent domain
legislation should not be sought because it should be used solely for public projects.
Staff comment. The critical factor in assessing the use of TIF and whether it achieves its
objectives is the "but for" test. "But for" TIF, redevelopment projects in core cities, such as Saint
Paul, would not be done. The alternative is to continue to have land within the city that is not
productive, either as a component of the tax base or in providing housing or employment. Most
TIF districts in the city recapture between 50 and 90 percent of the property tax increments
generated by the project, with the remainder going to the City and other taxing authorities.
Except for pollution clean up, the base property tax paid by the property owner/s is untouched
and is collected by the taxing authorities. Economic development TIF districts are typically 10
years in duration. However, redevelopment TIF districts are generally 25 years, a length of time
necessary because of the extraordinary costs associated with the redevelopment costs, including
pollution cleanup, blight removal, and the costs of the project itself. The use of eminent domain in
the past enabled core cities such as Saint Paul to pursue redevelopment projects on lands that
were blighted and polluted. When the use of eminent domain was restricted, the City's latitude to
deal with such properties was severely hampered.
Staff recommendation. No change.
3. STAR funds as a fiscal tool
Fiscal tools. The Sales Tax Revitalization Program (STAR), also known as the "%z cent sales tax program, "is
a flexible funding program that provides support for community-based deve%pment opportunities. The
S7"AR board, as well as the Mayor and the City Council in thei� reviews, considers Comprehensive Plan
policies when awarding STAR funds for these projects.
Comment. Benita Warns, a resident, states the existence of STAR funds that can be used at ihe
discretion of the council members for projects in each of their wards is inappropriate and, should
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the practice be continued, the STAR program should be abolished.
Staff comment. The STAR fund for many years had the Neighborhood Initiative Fund, which
provided money for each of the seven City Council members to use at his/her discretion. The
State Legislature in recent years revised the legislation establishing the STAR program to require
that there be one fund, rather than seven, with revisions to how the money can be used. The
fund is called the Neighborhood Development STAR Program. This fund allows wor[hy projects
that meet the STAR criteria to be funded between the project cycles or that need funding in a
shorter timeframe that the six-nine month STAR application and decision period.
Staff recommendation. No change.
4. Affordable housing and high-density housing
No specific text cited.
Comment. Benita Warns, a resident, states the plan equates affordable housing with high density
housing and this circumstance contributes to warehousing of residents. She further states that
the development of multifamily housing does not appeal to the needs of most residents and does
not attract families with children to the city. She states there should be more single family houses
constructed in the city.
Staff comment. The city has a f nite number of acres available for development of housing or
other uses. The Comprehensive Plan does not preclude development of new single family
housing but assumes that it will be infll development in neighborhoods where single family
housing predominates. The vast majority of new housing is likely to be in areas where it can
capitalize on a number of factors, including better use of energy, better access to transit, and
changes in demographics that indicate there will be more one- and two-person households in the
future. Not all new housing built is strictly for smaller households; many apartments and
condominiums are geared specifically for families with children.
Staff recommendation. No change.
5. Eminent domain
No specific text cited.
Comment. Benita Warns, a resident,
Staff comment. /////!/////////The background material for Policy 1.9 describes the Invest Saint Paul
program, which includes six specific elements, including the strategic acquisition of vacant
properties. These elements have been adopted by the Housing and Redevelopment A�thority.
The City already has in place programs to assist people in purchasing a house; these programs
are available through the City and local community development corporations. People seeking to
purchase one of the houses acquired through the ISP program can seek financing from these
programs.
Staff recommendation. No change.
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Saint Paul Planning Commission
City Aall Conference Center
15 Kellogg Boulevard West
Minutes December 19, 2008
A meeting of the Planning Commission of the Ciry of Saint Paul was held Friday, December 19, 2008, at
8:30 a.m. in the Conference Center of City Hall.
Commissioners Mmes. Donnelly-Cohen, Faricy, Morton; Smitten, Wencl; and
Present: Messrs. Alton, Bellus, Gordon, Kramer, Margulies, Nelson, and Ward.
Commissioners Mmes. *Lu, '�Porter, and Messrs. *Barrera, *Commers, *Goodlow, '`Johnson,
and *Spaulding.
Absent:
*Excused
Also Present: Larry Soderholm, Planning Administrator; Patricia James, Penelope Simison,
Josh Williams, and Sonja Butler, Department of Planning and Economic
Development staff; also, former Commissioner Dennis Rosemark.
I. Approval of minutes December 5, 2008.
MOTION: Commissioner ponRelly-Cohen moved approva[ of the minutes of December 5,
2008. Commissioner Nelson seconded the motion. The motion carried urcaniinously on a
voice vote. _
II. Chair's Announcements
Chair Alton read a resolution thanking Dennis Rosemark, who served as a member of the Saint
Paul Planning Commission from 2006 through June 2008, when he became the City Council
Legislative Aide for Ward 3 and had to resign from the Commission.
MOTION: Commisszo�rer Gordon moved approva[ of the resolution honoring Commissioner
Rosemark. Commisszorrer Kramer seconded the motiorr. The motion carried unanimously on
a voice vote.
Mr. Rosemark thanked the Commission and made a few comments about how mucn he is
learning from the direct day-to-day contact with citizens that he now has in the Council offices.
III. Planning Administrator's Announcements
Larry Soderholm reported on planning-related business at the Ciry Council for last �z�eek,
including the adoption of the Parks and Recreation Chapter of the Comprehensive Ptan, and their
agenda for next week, including the establishment of a Water Working Group.
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IV. PUBLIC HEARING: Introduction and Implementation Sections — Item from the Comprehensive
Planning Committee. (Penelope Simison, 6.i1/266-6.iS4)
Chair Alton announced that the Saint Paul Planning Commission is holding a public hearing on
the Introduction and Implementation Sections of the Comprehensive Plan. Notice of the public
hearing was published in the Legal Ledger on November 24, 2008, and was mailed to the
citywide Early Notification System list of recipients and other interested parties.
Penelope Simisori PED staff gave a brief presentation on the proposed Introduction and
]mplementation Sections of the Comprehensive Plan. Ms. Simison said staff had been working
for three years to prepare the Comprehensive Plan update. The six new citywide chapters will be
put together as one document. To give it cohesiveness staff has prepared an introduction and a
section on implementation strategies that will go at the end. The Introduction explains the legal
requirements for the plan, the overall theme of sustainability, and the major recommendations in
the six chapters. The implementation Section describes the changes in zoning regulations, the
Capital Improvement Program, the Housing Implementation Program, and other implementation
tools that that are necessary to put the plan's recommendations into action.
Ms. Simison said the only written correspondence she has received is a letter from Benita Wams,
who lives in the Midway area. It is enclosed in the packet mailed to the Commission.
Several of the commissioners wanted to know more about Ms. Warns' point that the Met
CounciPs population projections are too high for the city, which causes the plan to be too
aggressive about growth and redevelopment, especially in light of the weak economy.
Ms. Simison said the staff actually agrees that the Met Council's growth targets far the city and
for the entire seven county region are too high. About eighteen months ago the staff discussed
the problem with Met Council staff and was advised that we should just use che current numbers.
After the 207 0 Census, Met Council will do revised projections and then we can make
corrections. Met Council did these projections about four years ago while the housiag market
was still strong. They make a region-wide estimaYe of what kind of growth there will be, and then
allocate the growth by municipality. Cutting 5aint PauPs projected growth relative to other
municipalities in the metro region would tend to weaken Saint PauPs claim on metro area funds,
such as LCDA, brownfields clean-up, parks, and transit. Therefore, the staff decided not to
pursue an amendment to the growth targets.
Larry Soderholm added that the comp plan chapters have the correct vision for the future. If the
whole metro area grows more slowly, then the City will lidcely move toward its grow±h targets
more slowly. It may take 15 or 20 years to reach our ten year target, but the direction of change
that we are setting out is correct.
Next, Commissioner Gordon referred to Ms. Warns' letter regarding the STAR funds. As chair
of the STAR Board, he agrees with her comment that STAR funds are being used differently
from what the legislation intended. He asked Ms. Simison to revise the description of STAR as a
funding source in the Implementation section. He would like the description to reflect the tension
between its original intended uses and its actual current uses. As written the drafr gives the
impression that more funds are available for competitive neighborhood improvement projects
than is actually the case.
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Ms. Simison stated that she wili address this when the Implementation Section is reviewed by the
Comprehensive Planning Committee, which is the next step in the process.
Chair Alton read the rules of procedure for the public hearing.
No one spoke and no additional written testimony was given at the meeting.
MOTION: Commissioner ponnelly-Cohen moved to close the public hearing, [eave the record
open for written testimony unti[ noore on Monday, December 22, 2008, and to refer the maner
back to the Comprehensive Planning Committee for review and recommendation.
Commissioner Ward seconded the �notion. The motion earried unanimously on a voice vote.
V. Zoning Committee
NEW BUSINESS
#08-185-032 Juel Fairbanks Chemical Dependencv (Blair Ave) — Conditional Use Permit for
transitional housing facility with 6 residents and variance of required parking (3 spaces required,
] space proposed). 1754 Blair Avenue between Wheeler and Aldine.
(Sarah Zorn, 651/266-6570)
MOTION: Commissioner Morton inoved the Zoning Com�rcutee's reco�rcmendation to appvove
the conditional use permit with condidorzs. The motion carried unanimously on a voice vote.
#08-201-656 Church of St. Andrew Kim (Emi1�P�raml — Rezoning form RM1 Multiple-
Family Residential to TN2 (Traditional Neighborhood). 1465 Cleveland Avenue North between
Hendon and Buford. (Patricia James, 651/266-6639)
MOTION: Commissioner Marton moved the Zoning Committee's recommeHdation to approve
the rezoning. The motion carried uharaimously on a vodee vote.
VI. Comprehensive Planning Committee
Chair ponnelly-Cohen
Percent for Public Art Ordinance— An update on the contents of the proposed ordirance.
(Josh Williams, 65!/266-6659)
Mr. Soderholm reminded the Commission that Yung-Kang Lu, as the Commission`s liaison to the
public art planning process, reported at the lasf ineeting that the "Percent for Public Art"
ordinance was in a drafr form and might be submitted to the City Council for consideration soon.
The Commission asked for more information about it and staff offered to provide it at this
meeting. UnfortunaYely, neither of the two planners who have been involved in the process was
available, so Mr. Soderholm asked Josh Williams to bring the drafr ordinance to the Commission
today. Josh was at the most recent meeting of the City staff working group, but he doesn't have
much background on the whole issue.
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Josh Williams, PED staff, give a short presentation with an overview of the history and purposes
the draft ordinance, and highlighted some its key provisions.
Commissioners had a number of comments and questions about the ordinance regarding: the
seeming conflict between the definition of public an, which includes performances, and the
funding source as capital budgets; clarification on what funding sources and projects must
contribute one percent for public art; whether the requirement would apply to property leased, but
not owned by the City; how the requirement would be applied to easements that developers a ant
for public use of private property and to developer-paid public improvements; how the percent
would be figured when the City is contributing matching funds toward the full cost of a capita]
project; how to avoid "art by committee"; when landscaping itself can be considered public art;
how lona term maintenance will be provided for the new art installations; and at what stage in a
land use and redevelopment planning process an artisYs input is useful and cost-beneficial.
Mr. W illiams responded that since he was at only one meeting, he can'c answer these questions
except to say that almost all of them were raised and considered by the staff in that meeting.
Generally, the ordinance is a framework. It is to be followed up with program guidelines that will
deal with program specifics.
Chair Alton reminded the Commission that this was brought here today as an inFormational
presentation. The matter has not been referred to the Commission. Commissioners who are
interested can track it when it is taken up by the Council.
VII. Neighborhood Planning Committee
Chair Wencl had no report.
VIII. Communications Committee
No report
IX. Task Force Reports
No report
X. O�d Business
None
XI. New Business
None
XII. Adjournment
Meeting adjourned at 9:45 a.m.
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Recorded and prepared by
Sonja Butler, Planning Commission Secretary
Planning and Economic Development Department,
City of Saint Pau]
Respectfully submitted,
Larry Soderholm, AICP
Planning Administrator
Approved
(Date)
Marilyn Porter
Secretary of the Planning Commission
Butler\Fleming\December 19, 2008
(1/12/2009) Penelope Simison - Testimony For Comprehensive Plan Introduction and Implementation Chapters Page 1
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From: "Warns, Benita B- Eagan, MN" <benita.b.warns@usps.gov>
To: <penelope.simison@ci.stpaul.mn.us>
Date: 12/10(2008 520 PM
Subject: Testimony For Comprehensive Plan Introduction and Implementation Chapters
CC: "Larry Soderholm" <Larry.Soderholm@ci.stpaul.mn.us>
Please enter this e-mail message into the December 19, 2008 o�cial
public hearings for the Introduction and the Implementation chapters of '
the St. Paul Comprehensive Plan.
With respect to the Introduction, I take issue with the population
statistics used by the Metropolitan Council to determine the growth
targets for St. Paul's population. First, the document lists St. Paul's
2000 population at 286,840. The actual 2000 census count for St. Paul
was 287,151 people. Considering that this data has been available since
at least 2002, the correct number should be listed in the document.
The more important problem with the population numbers are the growth
pro�ections. The Met Council says that St. Paul's population in 2010
will be 305,000 people, an increase of 17,849 people. In reality St.
Paul's population is declining. In 2005, St. Paul's estimated
population (See the St. Paul Pioneer Press on December 1, 2008) was
275,150, a decrease of 12,001 people. This means that St. Paul's
population would need to grow by 29,850 people in a five-year period.
That kind of growth is unrealistic and not sustainable, particularly in
a recessionary economy. Based on the documented declines in population,
St. Paul will do well to bring the population back to 2000 levels by
2020, and grow to around 300,000 by 2030, but St. Paul will not gain the
44,160 people that the Metropolitan Council says we will. Since our
entire Comprehensive Plan is based on these population projections, the
plan is flawed from the outset. This plan must be revised to reflect
the true rate of population decline in St. Paul.
With respect to the Implementation section, I take issue with several
strategies. The first is use of Tax Increment Financing (TIF). St.
Paul already has a substantial amount of land covered by TIF districts.
Property taxes collected in TIF districts do not contribute to reducing
taxes for all the rest of the property owners because TIF-district taxes
are earmarked to pay back the City for infrastructure improvements that
helped bring about the development. TIF districts are created for long
periods of time, anywhere from 10 to 25 years That is a long time to
keep those new developments from helping offset property taxes for the
rest of us. We need to reduce our reliance on TIF and instead rely more
on the marketplace to determine if a development will be viable. TIF
should only be used in extreme circumstances, and then the district
should expire in 10 years. Once a TIF district expires, property in
that district should not be allowed to become part of another TIF
district for at least 10 years. If it will take more than 10 years for
a development to generate enough taxes to pay for the needed
infrastructure, then it is not a viable development and should not
receive TIF assistance.
I also take issue with the overreliance on Sales Tax Area Revitalization
(STAR) funds to fund improvements. These funds have been used
inappropriately to fund pet projects favored by City Council members.
Each council member gets a dollar amount as a kind of "slush fund" and
(1/12/2009) Penelope Simison - Testimony For Comprehensive Plan Introduction and Implementation Chapters Page 2
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can decide arbitrarily to fund projects in his/her ward that did not
make it through the competitive public process. This practice should be
stopped now, otherwise the STAR program should be abolished.
On Page 7 the document essentially states that "affordable" housing is
the same thing as high-density housing. Is it no longer possible to
build a single-family home that is affordable to the middle class?
Promoting high-density housing will not result in creation of the large
houses needed by the large immigrant families. What it will do is
create high-density "people warehouses" for the poor. This is not
creating a high quality of life in St. Paul, it will detract from it.
First, just because Baby Boomers are getting older doesn't mean that
they will all sell their homes to the families and move to the proposed
people warehouses. Right around 90% of seniors stay in their own homes.
Why should they sell a home they worked all their life to own outright,
only to get a mortgage for a crackerbox that is 1/3 the size of what
they had with no private green space? We need to fnd ways to build
more single-family homes and less high-density people warehouses.
As I stated earlier, St. Paul's population deelined by around 12,000
people during the first five years of this decade. During that same
period, St. Paul added 5,000 units of housing, most of which is in
high-density buildings with mostly one- and two-bedroom units. Now we
have thousands of vacant houses and apartment units. This has not
helped St. Paul, it has hurt it. We cannot continue building all these
little dwelling units. If we allow the single-family homes to
deteriorate and only build large multi-unit buildings to replace them,
St Paul will rapidly become a city without children. Look at the
enroliment decline in the St. Paul Public Schools. We need to attract
more families with children to St. Paul, not more empty nesters.
Finally, on page 8, one of the strategies listed was to convince the
State Legislature to relax the rules under which eminent domain can be
used to redevelop blighted property. I strongly oppose use of eminent
domain to take property away from one owner, clean it up, and then sell
it to another private owner. Eminent domain should only be used to
acquire land to use for PUBLIC facilities - streets, parks, schools,
etc. - that are owned and can be used by all citizens. It is morally
reprehensible to take land from an unwilling private owner and turn
around and sell it to a different private owner.
I believe that this Comprehensive Plan is based on flawed population
data and will prove overall to be a failure.
Benita Warns
1440 Lafond Avenue
St. Paul, MN 55104-2438
651-641-1037