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3. CCSR-HRSR 09-04-2012 SPEC JOINT (2) Elk REQUEST FOR ACTION River TO ITEM NUMBER Mayor and City Council, Housing and Redevelopment Authority Members 3. AGENDA SECTION MEETING DATE PREPARED BY September 4, 2012 Jeremy Barnhart,Planning Manager ITEM DESCRIPTION REVIEWED By Downtown Task Force Plan REVIEWED BY ACTION REQUESTED Receive the Downtown Task Force plan and presentation. BACKGROUND/DISCUSSION On September 4,representatives of the Downtown Task Force will be prepared to introduce the Downtown Plan and kick off the public review portion of the planning process. The Council and the HRA are the first groups to review the plan publically. All boards and commissions of the city will receive the plan at their regular September meeting. The Council and HRA,in a joint meeting,will receive a brief review of the plan,including the objectives and the recommendations. The Council and HRA are not asked to act on the plan;rather,any comments generated should be forwarded to the Downtown Task Force by September 24th. An open house is also scheduled for September 13th for the public to review and learn about the plan. The Downtown Task Force was convened in November, 2011 to develop a plan to address changes to the core of the city brought on by Highway 10 modifications anticipated over the next several decades. FINANCIAL IMPACT None ATTACHMENTS • None Action Motion by Second by Vote Follow Up P M M E II E ® e r N:\Departments\Community Development\Economic Development\HRA to move\Agenda\Year 2012\9-4-12 NATURE Agenda\SR to CC-HRA introduction of plan.docx It j i a4 i X ' ! 0 4 O ► '+„ O W r. 1 O o 03 cV i !+ \ 41 1"*". 4 Ai.if . n W 1- rd E 441 , a u_• 0.. O U > cc i I o • O > . , !hi c/D INU CD, . ' Q W • op,* - \. lail r Z j. . z c x` . f 0: . ,. **: . N. • • • Executive Summary Mississippi Connections Redevelopment Framework Plan The Plan was prepared by a City Council appointed task force ..."To develop a comprehensive plan that will comprised of 18 members representing a variety of community redefine the "greater downtown area"to preserve interests. Deliberations took place over a period of eleven its historical character while promoting the future meetings which covered a one year time period in 2006 and 2007. viability of the community"... (Excerpt from the Task Force Mission Statement) The task force adopted the following vision statement to guide the formation of the plan: "The Mississippi Connections Study Area is the cornerstone of the community. The Redevelopment The downtown area of Elk River is the oldest part of the City and Framework provides the blueprint for creating an has long been considered the heart of the city. This area, the environment and culture that encourages private businesses in particular, have seen shopping patterns change, reinvestment. This environment will be characterized by a impacting the success of their businesses. Further,the robust business climate, strong affordable residential downtown businesses,and the residential neighborhoods neighborhoods, diverse recreational opportunities, an agreed surrounding it,will be impacted by expected changes to Highway upon transportation framework,recognition of its historical 10 in the next 2 decades. Highway 10 will evolve to an urban place, and enhancing opportunities for connections with the freeway in the future. It is not known when this will occur,but community." we know that it will further alter traffic patterns and impact businesses and homes in the area. Unaddressed, these changes It soon became evident that expected changes to Highway 10 can be devastating to fragile neighborhoods and businesses that (originally identified during as part of the 2002 Inter Regional are important to the Community of Elk River. Corridor Plan)would have a far greater impact to the downtown core than originally thought. To gain a better understanding of This document is intended to provide guidance to property these changes,the City Council tabled the Task Force in 2007, owners, stakeholders, and community leadership to position the and worked with MnDOT on a more defined Highway 10 plan area in such a way that strengthens the area to survive the impacts through the City. That plan was approved in late 2008. of time and change;methods to reestablish the downtown area as a destination;a desirable address to do business,live,and enjoy The task force was reconvened in 2011,adding more resident and the diversity of uses in a character rich downtown amid the hustle business representatives. Over 10 months starting in 2011, the and bustle of a growing community. Task Force reviewed the plan,updating it to address new information and goals. This Plan represents both the approved Draft as of September 4, 2012 -Part I Executive Summary,page 1 - Highway 10 planned improvements and the task force's response The collection of small projects builds more momentum to those changes. from property owners, stakeholders, and other interests. This vision,albeit 2. "Redefine"- the strongest operative words found within appearing idealistic in The nature of a redevelopment the mission statement is...'red fine the `greater downtown framework plan demands area".... The word"redefine" carries with it both the most form,is a long term imagination,a strong vision, and controversial aspect of the redevelopment framework plan that allows the patience.The framework is both a (physical change) but it also explicitly conveys the hope and strategic and tactical description of vision of the plan.The intent of the framework is to respond City to guide its own how a community will address to time and market changes that have already occurred, and fate as development complicated issues such as to redefine a context for present and future changing markets, commitments development/redevelopment opportunities, offering and redevelopment to a process and defining an guidance and opportunity for the area to survive these opportunities present ultimate vision for the future. changes,many of which establish a development pattern much different from what the area was formed under. themselves to the The following is a summary of the "Redefine"becomes both the vision and the intrinsic value of community. Task Force's philosophy behind recognizing the need for careful and guided change. the framework, some of the key planning elements, and comments regarding its implementation. 3. History- the greatest challenge to the Task Force was The mission and vision statements, as shown at the top of this creating a framework that balanced future changes with the section, drove the formation of this plan. area's history and environmental assets and opportunities. The framework anticipates saving one major core downtown 1. 20-Year Vision- the redevelopment framework is block of buildings at Jackson and Main, the water tower, designed by necessity to have a long term horizon for reinvigorating the single family neighborhoods,re- completion. However, this reality should not serve as establishing the Mississippi and the Elk Rivers as a deterrence to either starting the plan or waiting for ideal commemoration to past history,by constructing interpretive market conditions. The framework's "Implementation signage and venues that tells the"Elk River Story". The Priorities" articulate,in detail, tasks needed to be done within framework envisions,in part, the creation of a new history the first three years of plan initiation followed by long term committed to attracting the community as a whole to enjoy objectives.Working hard in the first three years to establish this area's uniqueness and opportunities. Building on our rich momentum and excitement will serve to propel the vision history will take time and patience but this objective is a forward with commitment and conviction. critical tenant of the plan. Drat as of September 4, 2012 -Part I Executive Summary,page • • 411 4. "Core Downtown"- the Task Force's vision is based on a demand. All of which will be necessary in order to create the future market that will seek rehabilitation and redevelopment magnitude of real estate value that would make opportunities, especially for properties situated along the redevelopment feasible.While market driven, any Mississippi River. The plan seeks to establish the`Brick and redevelopment of this area will likely require taxpayer S. Main Blocks" as the center for historical rehabilitation and assistance,in the form of financial incentives and assistance, creates a path to determine the economic viability of this regulatory changes, and land acquisition. objective. Lastly, the plan attempts to provide opportunities to draw people to the core downtown. Festivals,markets, 7. Commitment to Implement- no redevelopment music events,in addition to physical connections to the river framework has value until commitment to implement is to promote the core as a destination, a characterization that agreed upon by all affected parties;this community consensus will be more and more important as travel patterns evolve is only initiated by the City Council's adoption of the Plan. away from the direct access currently employed. With this consensus, an agreed upon set of priorities and a work plan is established to begin the process of creating the 5. Single Family Neighborhoods- the redevelopment foundational steps of the Plan. framework's philosophy started with the premise of preserving the single family neighborhoods, some for the rich 8. Financial Commitment- due to the economics of asset of affordability and other sectors for their historical redevelopment and revitalization,no vision can be quality.A goal of the plan is that the commercial implemented without a major financial commitment by the redevelopment and reinvestment successes on both sides of City. Some of the redevelopment costs will realistically have Highway 10 will translate directly into reinvestment interest to be absorbed through the use of tax increment, tax by residential property owners. abatement and other forms of public/private participation. In addition, taxpayers should anticipate the City may have to 6. "North of Highway 10"- the area of most significant capitalize rehabilitation related funds and commit to change is the 5 block area north of Highway 10. The Task significant capital improvements involving open space and Force envisions that as market dictates, this will evolve into a other infrastructure costs. destination neighborhood. An "employment center" (e.g. office,medical,institutional) to bring daytime users that In conclusion,the Mississippi Connections Redevelopment support the core downtown commercial is envisioned. Framework serves as the template for the future. Elements of Additionally, a higher density residential component should the framework may have to be altered over time but the be located abutting Lions Park,coupled with a greenway and commitment to start the implementation inherently to pursue strategically located storm water assets.This Study Area also the redevelopment objectives vigorously should translate into creates the greatest challenge for redevelopment due to the making this part of Elk River strong and sustainable. type of existing buildings,number of buildings,limited inherent physical assets, and no immediate strong market Draft as of September 4, 2012 - Part I Executive Summary,page 3 - Acknowledgements Redevelopment Framework Task Force (2006-2007) Nick Zerwas EDA/ City Council Mark Urista (Chair) Business Representative Dana Anderson Planning Commission Board/Commission/Public Input John Anderson Resident Representative City Council Keith Holme Business Representative Economic Development Authority Louise Kuester Housing&Redevelopment Authority Housing&Redevelopment Authority Jean Lieser Housing&Redevelopment Authority Heritage Preservation Commission Lance Lindberg Heritage Preservation Commission Parks&Recreation Commission Molly Nadeau Resident Representative Planning Commission Mike Niziolek Park&Recreation Commission Framework Plan Area Stakeholders Dave Rymanowski Business Representative General Public Larry Toth Housing&Redevelopment Authority Dan Tveite Economic Development Authority Stewart Wilson Housing&Redevelopment Authority Technical Advisory Team (2006-2007) Scott Clark Community Development Director Redevelopment Framework Task Force (2011-2012) Catherine Mehelich Director of Economic Development Dana Anderson (co-Chair) Planning Commission Heidi Steinmetz Assistant Director of Economic Development Stewart Wilson (co-Chair) Housing&Redevelopment Authority Jeremy Barnhart Planning Manager Mark Urista Business Representative Chris Leeseberg Planner John Anderson Resident Representative Terry Maurer City Engineer Keith Holme Business Representative Bill Maertz Park&Recreation Director Louise Kuester Housing&Redevelopment Authority Stacie Kvilvang Ehlers&Associates,Inc. Jean Lieser Housing&Redevelopment Authority Michael Schroeder LHB Architects&Engineers,Inc Lance Lindberg Heritage Preservation Commission Molly Nadeau Resident Representative Technical Advisory Team (2011-20012) Chad Wurm Resident Representative Jeremy Barnhart Planning Manager Jim Hudson Resident Representative Pat Dwyer Business Representative Chris Leeseberg Planner Mike Niziolek Park&Recreation Commission Annie Deckers Director of Economic Development Alan Sakry Business Representative Justin Femrite City Engineer Fred McCoy Business Representative Calvin Portner City Administrator Larry Toth Housing&Redevelopment Authority Jerry Gumphrey EDA/ City Council Dr t as of September 4, 2012 • -Part I Executive Summary,page • . • Table of Contents Focus Areas Map I.9 Retail Shift Map I.11 Executive Summary 2-5-mile Radius Competition Map I.12 Elk River in the Next 10 Years Map I.12 I. Introduction Land Use Chart I.13 Land Use Map I.15 Background Zoning Map I.16 Task Force Mission Statement Year Built Map I.17 Mississippi Connections Vision Statement Market Value expansion I.19 Study Area Defined Previous relevant studies I.21 Statutory Authority Market Demand Summary I.28 Primary Redevelopment Sites I.29 Summary of Existing Conditions Illustrative Master Plan II.4 Recreation Opportunities II.9 II. Illustrative Master Plan Core Downtown II.12 Highway 10 Corridor II.16 Goals North of Highway 10 II.18 Residential Neighborhoods II.22 Policies Proctor and Quinn Avenues II.26 Specific Area Strategies IV Appendices •Strengths/Weakness/Opportunities/Threats Analysis III. Implementation Priorities •2006 Planning Process •Public Comments (placeholder) Figures •Task Force Resolution (placeholder) Study Area Map I.8 Draft as of September 4, 2012 -Part I,page 5 - I. Introduction an evolutionary process which will occur over time and not overnight. The City hopes that public involvement, as exemplified by this Plan,will attract new private This document describes the formation of the Downtown Task investment to Elk River. Force, and their development of an Illustrative Mater Plan (Plan) for the long-range vision for the 432-acre core of the City of Elk a. Background River. The purpose of this Plan is threefold: to serve as a The City Council created a Task Force on October 2, 2006 for blueprint for the City to respond to private investment proposals, the purpose of creating a Plan for the"greater downtown area" and as a work plan for the City to create and maintain an and to provide direction and frequent feedback to the Technical environment in a manner consistent with the community's vision. Advisory Team made up of city staff and consultants. Lastly, the plan is intended to communicate to property owners and those interested in the area the City's long term goals for the The Task Force paused in late 2007 to allow for the completion area. of the Highway 10 plan as it routes through the downtown area. This document consists of four sections: Following completion of the Highway 10 plan in early 2009, and the review of the Highway 10 plan at the Federal level, the Task 1. Summary of Existing Conditions provides the Force reconvened in November 2011. background information used to shape the Plan. This Plan was developed based closely on the desires and vision 2. The Vision and Illustrative Master Plan provide a visual of the Task Force members,representing various interests representation and description of the type and character throughout the City. of desired development. This section references the summary of public input used to shape this Plan. The Goals and Policies set forth community aspirations for the study area and were used as a guide to follow in designing the long-range vision. 3. The Specific Area Strategies section contains the guide for public and private investment to occur over the 20- year timeframe. 4. The Implementation Priorities section presents proposed public actions and investments needed to realize the desired changes in the study area. Implementation will be oas of September 4, 2012 -Part I,page 6 - • r b. Task Force Mission Statement Following City Council's appointment of the Task Force, they Vision Statement — developed and adopted the following mission statement which describes their role in the creation of this Plan: The Mississippi Connections Study Area is the cornerstone of the community. The Redevelopment Framework provides the blueprint for creating an environment and culture that Mission Statement — encourages private reinvestment. This environment will be characterized by a robust business climate, strong affordable To develop a comprehensive plan that will redefine the residential neighborhoods, diverse recreational opportunities, "greater downtown area" to preserve its historical an agreed upon transportation framework, recognition of its character while promoting the future viability of the historical place, and enhancing opportunities for connections community. with the community. Maximum public input will be gathered to create and assess alternatives resulting in a formal redevelopment plan with a combination of a master vision, working policies, specific area recommendations and implementation priorities. c. Mississippi Connections Redevelopment Framework Vision Statement The following vision statement summarizes the end objective, purpose and intent of the Plan: Draft as of September 4, 2012 -Part I, page 7 - d. Study Area Defined rw°' `A °W`VS��'P The Task Force identified the study area boundaries starting from the"historic" core downtown area and expanded outward to include the adjacent areas which have tangible and intangible interrelationships with the health and vitality of the core downtown area. This "greater downtown area"is what is HI referred to herein the Plan as the"Stud Area". The Study Area encompasses the 432-acre south central core of RIVER. the City of Elk River and includes a variety of land use components. The Plan divides the study area into five "Focus Areas". These > areas allow for a more detailed discussion of the opportunities and approaches for key locations in the Study Area. °q The Focus Areas are: O"° • Core Downtown �f rI► o REDEVELOPMENT • Recreational Opportunities (Mississippi and Elk Rivers, STUDY REDEVELOPMENT Handke Stadium,River's Edge Commons and Lion's F1°°Y'o e Park). _ .�� i1 • Residential Neighborhoods — _!_ r • North of Highway 10 (Mixed use redevelopment \ opportunity) o • Proctor and Quinn Avenues OTSEGO The Study Area stems west,north and east of the core downtown 1 area and is bisected in half by east/west transportation corridors –U.S. Highway 10 and the Burlington Northern Santa Fe 4,-,„(BNSF) Railroad. 'irk 1 -o, DAas of September 4, 2012 -Part I,page 8 - _ 0 le,-,,giik 1411 ash NIP ‘ ? ''' , : --)(1 SCHOOL ST\ , ' jiii, rx.1 ci-til . c C u -4 J .S�- © 4TH $'I. _ �„.., ;. 0 .#' NTH ST "jot am, C:)r� 1 AiltiN ST MAIN ST' 'w.. iiiiiii, , .. , ,- 1, Co re vOt1TTd [] � � U' Recreational Oppotnuit es I , Residential Neighborhoods "N" INorth of Firs 10&Jackson Are Corridor " . e I Highway 10 Corridor ' Vt Proctor&Quinn Avenues ,r1' r • iii a 4 J Draft as of September 4, 2012 -Part I, page 9 - e. Statutory Authority deteriorating areas and may involve any work or undertaking for that Formally established by the City Council in 1980, the Housing& purpose constituting a redevelopment project or any rehabilitation or conservation work. Redevelopment Authority (HRA) in and for the City of Elk River was formed under the public purposes identified in Minnesota Assuming that redevelopment will occur in multiple phases, the State Statutes Sections 469.001 to 469.047 (Housing and HRA and City Council have previously adopted a series of Redevelopment Authority Act). incremental redevelopment plans within the greater downtown area in order to satisfy Statute 469.028,which requires the HRA The Housing and Redevelopment Authority Act grants to adopt a redevelopment plan prior to accepting a development municipalities the authority to designate redevelopment areas proposal. within the boundaries of the municipalities. Within these areas, the municipality may adopt a redevelopment plan and establish a Phase I - In November 2004 the HRA and City Council adopted project consistent with the municipality's public purpose. The a Downtown Phase I Redevelopment Plan in conjunction with projects as contemplated by this plan are consistent with the Tax Increment Financing District No. 21. Phase I is known as definition of a"Redevelopment Project" as defined in Section Granite Shores and Jackson Place project,which resulted in a 469.002,Subdivision 14. Essentially a"Redevelopment Project" total of 67 for-sale condominium units, 32 rental units, and includes any work or undertaking: approximately 20,000 square feet of commercial lease space and 1) To acquire blighted areas and other real property for the purpose of underground parking. The original name of Granite Shores was removing,preventing,or reducing blight,blighting factors,or the causes The Bluffs of Elk River. of blight; Phase II—In November 2006 the HRA and City adopted a 2) To clear any areas acquired and install,construct or reconstruct streets, Redevelopment Plan which allowed the HRA to secure a contract utilities and site improvements essential to the preparation of sites for for deed on property in order to potentially expand the King uses in accordance with the redevelopment plan; Avenue parking lot in the future. The property consisted of two 3) To sell or lease land so acquired for uses in accordance with the contiguous buildings, 716 Main Street and 720 Main Street, redevelopment plan; commonly known as "Main Street Mall". 4) To prepare a redevelopment plan,and to incur initiation,planning,survey Phase III -The Illustrative Master Plan is considered the next and other administrative costs of a redevelopment project,and to prepare technical and financial plans and arrangements for buildings,structures, phase of the City's redevelopment planning process. Although and improvements and all other work in connection therewith;or this Plan is not in reaction to a specific development proposal,it serves to satisfy the statutory requirement for the City to adopt a 5) To conduct an urban renewal project. The term"urban renewal project" redevelopment plan prior to accepting and undertaking may include undertakings and activities for the elimination or for the prevention of the development or spread of slums or blighted or development proposals within the study area. Dr t as of September 4, 2012 -Part I,page 10-_ VW V/ MI II. Summary of Existing Conditions • As retail moved out of our downtown area it has been replaced with office uses. Less retail starts The Plan grew out of information collected and considered by the chain of other retail uses not having a the Task Force over several months. This section of the Plan significant synergy to exist and in turn, seeking highlights some of the key data sources that contributed to the other market areas. planning process. The Changing Face of Downtown • The economic downturn starting in 2008 has Historically,Elk River was a"freestanding community" hampered ability of smaller businesses from (characterized by distance from the metropolitan area, self- opening or continuing businesses. It is these contained economy, and limited transportation routes).An businesses that are the primary market for a essential element of all freestanding communities was a core downtown area of our size. downtown area that served a highly agrarian economy.As is the 1.��!f ` Ti -r,-�j `�`� case with many cities that are on the edge of the metropolitan �� ¢� Q area, the form and function of our downtown has changed based \)- 1 I • on a series of factors, these being: g �� g j_ '1,11-Pli,.] . -- X • Incorporation of the City of Elk River and the Township in the late 1970's started the process of land development -- _a a..v,„ �, \through public utility extensions. =� —i - m. 4 _ iUL _ - Air _ • As part of this process, the TH 169 corridor opened to '1 :. , s1� commercial development ultimately creating competition for _�®CD[� , J1" i 7, ® � .''' - the downtown area, starting in the early 1980's. i . _ ...1 � ;. .� o 0':� : . I . ., fir-,1-'''� • Over the past thirty years, shopping habits have shifted to j� C, _ t `a ' 7-' _ _ - larger complexes of value and destination shopping. - - , . f : , ; ,if ,, , ,, , .. , • Loyalty to shopping areas has been replaced by value attached l 1 ,4 ', iii, - to location and accessibility. Market Shift Draft as of September 4, 2012 -Part I,page 11 - Some of the challenges for the downtown area will include: 11 11 11 11 11 '1 '1 11 1 1 1 11 11 "' ' 1 1 11 11 1" '. " 11 11 1 1' g iiiiiiiiiiNiiiliiiWilli JiiiiiiJliiii J M11111lll�ii iiliiiiiiilil_*IFY • The Natures Edge Business Center and the Northstar ;\r , - __ Corridor will challenge market share from the downtown area =I��L- Ell`� • CORE (Ramsey) and Waterfront East (Otsego) provide :1111111111111111111r i�' �� greenfield development opportunities for businesses and . housing not unlike those necessary for the vitality of the 611111Lt ■ IV stud area. _ �7�J �� rte/ G��I • The loss of direct access from Highway 10 will hinder some �� j1IT Mil �ip _Rummy businesses that rely on convenience sales. :1111� �/ �. (h �/, • The lack of privately owned parking suggests a perception =1��!'#I!U - ioi�,��>� that there is not enough parking downtown,hampering ;V►�� la�i� - - '� .; mils' 4D business traffic. ; ■��N>lia_ �4`r L"I! • • Future commercial development in the gravel mining. 11 11t�y r j ii a�I X _�,l , P:Fr ::-- IOW►Jr°�a,.:p, . 4 • Limiting the City's population to 35,000 reduces the need for _54 nom.,.,. �'� MI�� `''�; �1,n? ' '41]1A-, expanded commercial services 'L°,,a , r l.'"'" ,il', ,.= —.—...�. I, _it,".` feFt_ILL 1.:...,l:a.l 1�.;1"-'•"iJ /a /�.^' 1J117 _ 1 - �l i1ti 1 , n- m tre—yrMFlJ, i itiak.=_. it i,`�w . i / , Bill, 7 _ - ,: -.7.- % i , r 'F �`- ,•. 1" �1, 111111111111111111111.111111111111111111111 r1.. -; "i6� .'- �^# � r" .l 1 1 1 ! 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 11 \t 1 II '"'I\�r`,'-{ ■ �: RADIOS ELK RIVER �' I� �, t,-.0,-16,11 • `A . IU YEARS 11► �a INTO THE FUTURE 1,'�I ,rARri I 1 _ ■` ';;.r'`' 4 111, ` —-411il-hi1 n .0.,_ 111', ` `,_14 1 8 R '111i,__ `, ` 1 ..a j -) 0 3. 1 _ .. . 11i1111�� Commercial Radius ;.. - MI 1 1 1 111 1 1/1' 10 Year Projections Dr t as of September 4, 2012 el -Part I,page 12 4 1111 • • • Land Use The study area contains the following current land uses based off of tax classification information registered with Sherburne County. Tax Classification Acreage Square Feet # of Parcels Single-Family 511 Residential 193.7 481,516 1 Apartments 15 (4 or more units) 10.34 293,376 Low Income Rental .46 92,516 2 Residential (2-3 units) 5 n/a 9 Charitable Institutions .8 3,381 2 Church Properties 5.15 128,093 19 Commercial 87.38 547,520 102 Commercial (over 6.37 88,311 20 150K) County Public Prop. 1.62 3,000 3 Industrial 1.69 58,744 6 K-12 Private School 5.9 n/a 1 K-12 Public Schools 2.22 49,950 7 Municipal 23.32 69,302 40 Public Utility 1.47 n/a 2 Agricultural .25 n/a 1 Other 2 n/a 6 Totals 348 1,815,709* 745 *Building square footage was not available. Draft as of September 4, 2012 -Part I,page 13 - Consistency with Comprehensive Plan The 2004 Comprehensive Plan, adopted by the City Council on August 16, 2004 included a land use category identified as "Old Town". The Plan recognized that the Old Town area was a diverse blend of uses, styles, and characters, and further, a focused study was necessary to identify,preserve and protect that diversity. The following image indicates the Study Area in relationship to the Old Town area. The Old Town area, as defined in the 2004 Comprehensive Plan includes several differing land uses, including high, medium, and low density residential, Highway, Central and Office Commercial. The Plan is consistent with the Comprehensive Plan in that the mix and balance of uses within the area are maintained,although some realignment of infrastructure is necessary to ensure that the land is developed to its highest and best use.oas of September 4, 2012 -Part I, page 14 - • • 0 •IIII►. S .i SCHOOL ST HIGH9CHDOL SCHOOL TPRZOW mrs o- ..,+ii! 'ri1 -., t -`m®� r< 6 IC Z ■Ilr1l""111111r-�'� , ilk. 10;°: w .,,,n , ) _ . Iii IN -____-_----- - -.:, , - - , :dr 6. ;,..-i. mrzurin07,,,.„4-, ; 'Lei.A5,,Av, Vi\,:', --7 le. 'Wk.:1 - ..I .---1------::-___ w.. ' _.._..:. 1.4 PNIX MI U-10 ,mir OPEONII.R,4P ---z--t---'-- - '\,.,;''., . '� ., FI[ 1 p LAKE �� 111■1 ��\`z ` S° 1 ■ :I Ip 0 . OR \\\,\ It '4.✓' �1�' la ..�11. ■in '11 T5 `�`S°5 - l ��;\�, "!ltii 1111� !!l :1 Illy 1\' �;;;/ �\ j' "" i r��ari�, gy a'lill;* il�` ,�IIIr�I �11��w�!��i'� r p'D,' • lit AA y . ',` r 1, , VIII] 0111141k$ o r, Old Town _�_- `I�\_*". 13��i�1 1, m Medium Industrial �j wail BunteiCl 1 V't 1 n Urban Residential WILD a SCENIC 1,). - HliwayBueineee �3a` ' �- 1`�‘1,Z:*::\• Public Semi/Public �3 Open Space �I �A High Denary Residential �� V is i1,l` :x\ F-1 LIGht Industrial , \\\� nCommunity Carranercial 1 . \ ' 'IL----/ ' 1 -% V Irg Am. -8rl \ �h. f Land Use Map - Partial Draft as of September 4, 2012 -Part I,page 15 - Zoning Zoning designations show the current land use controls that apply to property in the Study Area. The Study Area includes a variety of zoning districts as indicated on the following image. 1 PIILIULt WICKIL HIGH SCHOOL 1 SCHOOL INVIR t-4■,, lo.PM alto. A0-.., Ilf,r4Or,,4140 ;iika eW a SCHOOL ST ___ I !It Ankilli ti .1114-Li'JAI ,11 .11 IN 4,1„ R-1 IP IP .1 - N ral NI—• Frr-2.7'.3 Ell gill-h2EIN NIL ..........._• NAN an IL 1 • ..---,#-A --7.01..11-Eis ' -----„,,,r .,Plolloallo -F/41.11:111 •, .kcfm.,,111 ---., 71 ,..0.0,k. ..m 6 rMMMIL.cosivr '—"-- craw SUof•L° II% 11111 )k, ---------) 1 !T:!:. 611.116mmiiiiiiillitiiiiiilic;r7.1. roto\l\'9,.:Ty, Eita 901td ',ii' -) ,.„---,:-.-- ,.. , .....,,,,, 40.N '''s'. .:-€.7,2.- • wit Nrildallfill.°13';,---'.J`4'1' IMO rt.16 1111 ZS* MS Mi WW1 im lima kw - __. ,! , 0 la -4=Tr• *014 bw44i4milil II ri!! 1 Unif,, 9111...c>4;.-1, AVIA!: ME LAKE ii am 14 '\‘' .:211.11.1111111111MMI im MIMIlkiaNIIIF,/ , .'W 1 00,0_111111111 OK Rill du MINE kik su Jamb nli ORONO my 'Il4lb 1....Zi. WWI IIIMI HMI = i .1 wiilisloS Gutj'n 4*****-1,7111111:.:11141 ,:Callum fir nee- 14--,-...."....Ai:,791 MOEN 111111111 1111EM "av'i°6 1 ' 11.111, ' .‘' .41141101'..' .- Willaw-iiiii MI 6,-- - ---b".4-%L. MIIEN IIIIMBN 111111rwsiii imam ',WWII \\\ \ TIAff PI --.:Qiik Tier. RAIL ar - ..4,c ,1111 WU BIM NAIL 1\1\ mh _1#4111-iihmii.311kil 'WINN --*75 -- aii ..." . - to44,4, 1k.411111erill 11111111Azhha_ os -fig , .,, . isaf, 4, lia,111 4Carth2r 10 Vskjapialliii gfilloir...:iiiltir-tgaul' .Illiiill HINIP.Iiir ftrio'1.144 lir \ ....4110 twitip"" ^"1111111-7"." ‘‘k...1,1■11111.11/ '410111111141 lenr. - , e,r, -TI/ ir ,Ptitilltig,-'7/4:141kaillike■ N ' '-'1 til Iii MISSISSIPPI RJVER .44k 461,11;1110111 '-'_..11.14110 ig ilia Aft", n , , ,, ,,., 0111111 :Avoid , . _..., Old Town Lc.. ( IN Medium Industrial , . • •' . -1/4.I Urban Residential WILD&SCENIC I ,-;,-/-- ,, v ...„.1 . , ,,, , .. ..:.:1 Highway Business Public Semi/Public \3 L Open Space c7_.-- High Density Residential 1 la ,\-\.7e. \ % 1-7 Light Industrial r , I , 1,4 ;.,-t; I-7 Community Commercial 1 , % \ \iii \ . it .,* ■ AlEbb. 1 ,.. \\ 1 ....n.....,, ,,_ L-10 ill ,--,'‘ \ 0 ., ------'-'7 , * . , 7 . , ...--- 1 7ETH \ . . )..N ) .34:■\\0 Dr as of September 4, 2012 oli 411 -Part I, page 16 - 4110,„ II lir Built • - Based on building permit issuance, the following image depicts the age of each primary structure and/or any improvements made to properties located the Study Area. w o� 8 ELK - . - - - _ - HILLS OK IONS �: PARK DR ENE WIN 7' r- Kg q m0 •I ,• TEA r�. _f-='1 I� .1 LI pi A 51 4 ,� ... �-- - _ C 1 i ...,,...73.,,,,ri iiik,,,,,,,........„.... 41 V/rf -.- 1, —7,10 - , i 1 N ''-' :.11i-4 at; 1 Legend —. No Structure /Date Unknown c . \ .. _ Unspecified-Pre 1976 Years Count Study Area:. _ - Unspecified-Pre 1977 1800-1900 75 m�F - Unspec�fted-Pre 1978 1901 -1930 83 2R,psr _ Unspecified-Pre 1983 1931 -1960 138 0 250 500 1,000 ��F 1961 -1970 68 1 1 t t l l t t l �1'"P - 1800-1900 1971 - 1980 66 Feet -1901-1930 1981 -1990 100 N M 1931_1980 1991 -2000 42 -' 1981_1970 2001 -Present 3 Pre 1976 1 1971-1980 Pre 1977 24 IN1981-1990 Pre 1978 1 '""'." Sew """' I'y" '° -•- 1991-2000 Pre 1983 4 .7 ..� v.+..wb• uM�Y. �. Y.w..Y be he 4..• -2001-Present No Date 139 «..y k • 4,• Draft as of September 4, 2012 -Part I,page 17 - The Need to Redefine To evaluate the need for redevelopment, the Task Force ❖ New residential completed a series of exercises and small group discussions. ❖ Accessibility 0 Pedestrians Characteristics of"Downtown" Exercise o Traffic flow/access points The first exercise asked Task Force members to define the 0 River 1 History "Components of a successful downtown" and describe'What + Activities/amenities downtown means". Their responses included the following in no Aesthetically pleasing particular order: • Balance of old and new What makes a downtown successful? ❖ Charm,pleasant feel ❖ Brick and south Main Blocks ❖ "Heart"or center • Nostalgia What should downtown have that it doesn't • Authenticity ❖ Embellishments (flags,plantings,color) • Unique/traditional(sets us apart from suburban Specialty businesses development) + Signage • Past,present and future planning • Directional • Shopping/eating • Informative Why do you come downtown? Strengths. Weaknesses, Opportunities and Threats Exercise • Diversity of activity •• Destination The second exercise involved a discussion of Strengths, ❖ Tradition Weaknesses, Opportunities and Threats,a summary of which is ❖ Special events/entertainment provided in the Appendix. How do you know when you are downtown? It was a result of this exercise in which the Task Force reached • Mass of historic buildings consensus that"Downtown Elk River"has already changed, as a • Signage result of time and market, to a point where it is no longer the thriving commercial center it was 50 years prior. Further, What does downtown mean to you? consensus was that"Downtown Elk River" needs to reinvent ❖ Vitality itself as the historical, cultural,and energetic core of community. ❖ Interest,not necessity With the core established and strengthened, the service and office ❖ Commercial,retail and service uses will reemerge in the area, even when changes to Highway 10 ❖ Connectivity, transition,cohesive require more destination driven trips. oas of September 4, 2012 -Part I, page 18 - III III S • • Recent Public & Private Investments There have been a number of significant private improvements to the area in recent years. i "IIIIIIIIIIIIIIIIIIII ni rp Before After—Granite Shores Aili First National Bank of Elk River a. • First National Financial Center Building(Year 2000) Before-Jackson After-Jackson • The Bank of Elk River Expansion (Year 2005) In 2001, the Elk River Housing&Redevelopment Authority These private investments contribute significantly to increase the (HRA) determined that downtown Elk River's long-term vitality city's taxable market value and maximize the benefit of public should be a community goal. At the same time, several key investments as shown in the table below: parcels along the riverfront became for sale,which prompted the HRA to solicit development proposals from approximately 100 developers in order to form a public/private partnership to Project Market Estimated Market Add'l revitalize downtown Elk River. After receiving five development Value Before Value After tax proposals, the HRA and City Council selected MetroPlains payable Development to further refine their development concepts. 2012 Granite Shores $833,225 $9,241,600 $89,963 Five years later, concepts turned into reality and Granite Shores Jackson Place $175,800 $3,221,800 $36,092 and Jackson Place redevelopment projects were constructed. The The Bank of $1,395,600 $4,239,300 $56,874 projects added approximately 20,000 square feet of space for new Elk River businesses and over 100 new residents to the downtown. Expansion Project As a result of these private investments,the City was able to $2,606,100 $13,902,900 $182,929 expand the King Avenue parking lot and construct the long- awaited River's Edge Commons Park. Draft as of September 4, 2012 -Part I, page 19 - In 2010,the City purchased the parking lot behind the Sunshine Depot block. This purchase retained approximately 70 parking spaces in public ownership. In 2012, the Elk River Lutheran Church began redevelopment of the former 1st National Bank building into their new worship center. Included in the improvements was an easement to provide a trail along the river, a landscaped refuge center near Main Street, and a community room overlooking the river. In 2012, the HRA, due to poor building conditions and rising maintenance costs,removed the Main Street Mall at 720 and 716 Main Street. In their place, a 28 stall parking lot was added. As part of its exploration and understanding of the study area, the Task Force considered the following conditions and issues: • Previous Relevant Studies • Natural, Cultural and Recreational Amenities • Market Conditions • Transportation and Infrastructure • Historic Context Dras of September 4, 2012 -Part I, page 20 - 0 • 411/ Previous Relevant Studies Q Over the years the City has conducted several studies of the area .. \'N N rp a in an effort to continue to encourage redevelopment and 0 ° 0[1 !•f' i° revitalization of downtown. In Q CI D The objectives identified by these studies remain relevant thirty ■'F ^` five years later. These objectives demonstrate the long-term t N r* c f•Y objectives g ,„ °VIII. G nature of redevelopment planning. The 2007 Redevelopment +' , p p g p � Q. •�� ,(,44*Framework Plan validates many of these objectives, as v ��m � ��,r, �� summarized below: - Ki4° -t� .` , Q L, T7 ^ m f / c.,' S;;@ 1970—Elk River Central Business District Report dqq a� i' IN ,. It W Prepared by Nason, Wehrman, Knight&Chapman, Inc. t .e " t, `' `F' 1 The report established general guidelines for the physical o x appearance,movement patterns and development potentials for a 20-year timeframe. ELK RIVER, MINNESOTA Primary objectives included: CENTRAL BUSINESS DISTRICT • Unify existing and new buildings for the districts unique 1 970 character • Remove traffic conflicts (e.g. Hwy 10 overpass to connect \,:', �, . rr, rrr ° ° north and south areas) :.:...,..''''$$,•.* :.� -- ,f t' .I • Provide adequate parking(e.g. parking ramp) r. r.r :-•-;‘,„,,,,, c ,' t® , 'ri r r '. • Utilize natural setting of the Mississippi River (e.g. P ' ,fir` , " �j ;� 1=s r' " restaurant) 'r rh. r r: a� -, .; "� - 6® ' r T r r !-s_ ''' I.,r % ` `. r rnr Iranr f `�S r, girr r r r r ii: r' % Conceptual Ptan ... - •� `:` C `,\, se,s, \ I it ��J t 1970 Draft as of September 4, 2012 -Part I,page 21 - 1982—Elk River Downtown Redevelopment Plan -v% ` Oita � ' . Prepared by Zack Johnson &Associates, Inc. V. t�,y y:t'f.� ��• The plan established a guide to evaluate physical improvements, X_°. .`�y �`^ bLM AI#(D(DMZ develop zoning policies, and establish a Capital Improvements _ ,. ',:��.; o= = VII UNAlli Program. The plan identified priority improvements and ' 7�. P . •'`- p p �' p ",2, . K�011 LANPor�ca redevelopment opportunities. °, '`..-I�\`. v. .4 'K� °0 -E _ • G (Y • Rehabilitate architecturally and historically significant v •s ('g �y buildings (e.g. design standards) d�hUN�. ■.. Q ;��, ∎ , • Concentrate retail/office land uses south of Hwy 10 °c , CFF1CII • Concentrate service businesses north of Hwy 10 i t. Ft • Concentrate high-density residential west of Lowell trINIEST Avenue ELK RIVER DOWNTOWN REDEVELOPMENT PLAN • Identified priority redevelopment areas: 1982 •�•• •••• •�- •°^ o Town Square (known as Jackson Square) o King Avenue&Main Street % o Former Star News building to former Cinema 1 building. - ; `2. —,�o .1 ( CIVIC POWs �4 �� 1986—Governor's Design Team 1 BLOCK RAM' TOWN � Prepared by a team of professionals and active community I COMMEk" MA "` SCR: Illhig participation,an overall plan was developed for the city's Central r` �`" a C=3 ME ' Business District (CBD). MIxED Primary objectives included: 'y • Promote downtown as a"unique historic river town" 1 - Rhea-ReinrED COMMERCIAL • Link downtown to the community through open space ' PEDE!TRIAN and a trail system ;'' BRIDGE • Utilize the Mississippi River with a restaurant,hotel or ,li' community center uses • Consider a parking ramp for heavy traffic areas (e.g. King s? Pi A..p'—o v Avenue area) 1986 Dr t as of September 4, 2012 -Part I, page 22 -_ • • • 1988-Elk River Riverwalk Project • Develop design standards for signage, facade Prepared by Brauer&Associates Ltd. improvements,interior improvements and new The report created a riverwalk design and outlined the financial construction. feasibility for a new building on the former Hardware store site at • Develop activities and events (e.g. Heritage festival, the south intersection of Jackson Avenue and Main Street. winter festival,mural event) • Conduct a market analysis to assist business recruitment Primary objectives included: • Create more retail/service traffic via a restaurant • Generate more interest in the Mississippi River via a boardwalk trail •' ' 0 R{ w • Develop design standards for rehabilitation and new a P+ ; e., • ; construction .�_ - '''' - ' , �- , ,� J. i` `4 ,• 1994-Mississippi Riverwalk Pathways Plan O a ter__.._ u r Prepared by Hoisington-Koegler Group, Inc. n - ti,6.41t,e. u !� .._. a _ The planning process utilized a local committee to establish a - ` ..- _'-- vision and cost estimate for developing the riverwalk. ,-f�^ 16 I ° "" 1988 Primary objectives included: • Create an interpretive walking/biking trail along the river , that depicts the early transportation history of the region I "- l au 1998-Central Business District Action Plan i, . a f c•� � any .y>.4I ' ==��C.., Prepared by Theresa Washburn , a�>>�, , „ __ The plan created the foundation for developing a downtown .a ti ,. ,-1, a , » �' r: master plan, and completing activities through working i, s,. committees. ' rry� l�' '_t t Primary objectives included: _ • Utilize the river, an arts center,pedestrian pathways and a i r ae beautification plan o�' Riverfmnt Pathway along the Missi_sippi 1994 Draft as of September 4, 2012 -Part I, page 23 - Natural, Cultural and Recreational Amenities Mississippi River The Mississippi River through Elk River is classified by the The Mississippi and Elk riverfronts are significant assets for the Minnesota State Wild&Scenic Rivers Program as a"Recreational entire community. It is an authentic amenity for the community, River". The area is classified as a Recreational River because it and potentially the region,but it has to be connected to where has undergone some impoundments and/or diversions in the people are and easily accessible from the community as a whole. past and has adjacent lands which are considerably developed, but are still capable of being managed. ,{ ` St ,' The City of Elk River adopted the Wild&Scenic River ■' .�•Ordinance to regulate the subdivision,use, and conservation of �'" } the shorelands to preserve and protect the existing natural, scenic, e1 4;' historical, scientific, and recreational values. The regulations also ` gul reduce the effects of overcrowding and poorly planned of adjacent lands,prevent pollution,preserve a natural beauty and quietude,maintain proper relationships • • between various land use types, and prohibit new uses that are inconsistent with the statewide standards and criteria. 91 " Mississippi River Public access to the Mississippi River is under-utilized;limited largely by private property ownership along the shorelines and topographic constraints. Island areas are owned and controlled s by the MN Dept of Natural Resources (DNR), except with one major island in private ownership. Elk River 411160; The Elk River is classified as an"Urban River" through Elk River. The area is classified as an Urban River because it flows ,z through an incorporated area The city has a 300 foot shore land , overlay district along the river to provide for wise development, to preserve and enhance the quality of the surface waters,and to preserve the economic and natural values of the shore land area. Elk River south of Dam Dr t as of September 4, 2012 -Part I,page 24 -_ • • • Historic Elkhi Stadium Most commonly referred to by locals as Handke Stadium, due to its location next to the original Handke High School, the Ellthi Stadium is one of the landmarks of downtown Elk River. On May 26,2004 Elkhi Stadium was listed on the National Register of Historic Places. Built in the 1920's when volunteers turned a ` 4 �' 4.4' r- slough in a natural amphitheater into a playing field,the stadium t �._ was the place for a variety of high school athletic games over the = years. During the winter,kids sledded down the hills and skated ... .� w - ai. =• on the village's only ice rink. -'' " ` '`` ---4-, Over the years the stadium aged and fell into disrepair. The 1920's - Construction stone warming house that was added in the 1930's by WPA crews was rebuilt in 2000-2005 with funds raised by the Elk River , Rotary Club. The Club completed additional restorations as well, ..h. 4' including: a gas fireplace was added to the warming house,the ', n.I. stone wall was replaced, the steps were repaired, a stone plaza - containing the original Handke High School bell was built at one of the entrances to the stadium and the area was landscaped. ` Today the beautifully restored stadium is used for recreational -," - ` ii-it hockey,ice skating and art shows and events. ' 4-,' . I . / •A� _ 1.- • •a' 1 .s sm A6-,L.` , 4 . I ' 1 t •e Bell Tower Ice Skating ,, S 2007 Draft as of September 4, 2012 -Part I,page 25 - Rivers Edge Commons Park Rivers Edge Commons Park, completed in June 2007,is located at the intersection of Main Street and Jackson Avenue and extends from Main Street to the Mississippi River. The City acquired the parcel for the purpose of future park space in the late 1980's following the fire of a local hardware store. • 1,....._ Over the years the City considered design enhancements to " �� develop the site as the central plaza with a boardwalk trail, or I. I P- "riverwalk",which would extend along the river through the downtown area. Due to the cost of the park improvements the -'' F "' .. project was postponed until further private investment in the +T`, �or 0 ., downtown area justified the large public expenditure. ,- y fillia AIN In 2006, as a result of over$30-million of private investment with •y, "••I*_. '2.-.-' % ;a the addition of The Bluffs of Elk River,Jackson Place and The -r- .5. Bank of Elk River expansion,the City commenced construction "'' ,�,,, A! I of the park improvement project. The park includes a street-level 4'41. plaza, splash fountains,a natural amphitheater and a gazebo at 4 ' the river level. \ - ' ' I ..The Park is currently home to the Riverfront Concert series, a _ very popular program drawing hundreds of music fans to the downtown area on Thursday evenings in the summer month. _. Lions Park �, The 34-acre Lion's Park is located at the northern portion of the ! � a,`, study area,just south of School Street. Amenities included are 4 picnic shelters,paved trails,hockey rinks, a sliding hill, a 9-disc golf course,a skateboarding park,playground equipment, and a band shell. A majority of the improvements have been funded over the years by the local Lion's Club. Lions Park is home to many of the City's recreational programs. Rivers Edge Commons Dr t as of September 4, 2012 -Part I, page 26 - ■ • • • N t \ . , r, Lions Parl< Lions Park Draft as of September 4, 2012 -Part I,page 27 - Market Conditions Market research provides a context for redevelopment planning. The market analysis report quantified demand for additional This research examines the type, form and quantity of new housing,retail and office space in the downtown area for the development that could occur in downtown Elk River. The period 2000 to 2010. market research helps to direct the type and scale of new development to locations where new investment provides the Demand Summary greatest positive effects. Downtown Elk River Redevelopment Area 2000 to 2010 2001 Market Analysis In April 2001,Maxfield Research, Inc.was retained by the HRA Housing to conduct a comprehensive analysis of the market potential for For-Sale Multifamily 95-115 units redevelopment for Elk River's downtown. The research included Market Rate Apartments 300-360 units an analysis of the existing supply and market conditions of Market Rate Senior Housing 60-70 units housing,retail and office in the area. Growth trends and demographic characteristics were analyzed to consider the impact Office 19,000-39,000 sq.ft. on the potential to develop various land uses in the study area. Retail* 14,000 sq.ft. The analysis identified 3 distinct areas in the study area based on * Demand through 2005 current land uses and physical barriers,opportunities and Source: Maxfield Research Inc. challenges. The report recommendations focused on development potential for each area and strategies to enable the Prior to use of public funds to facilitate redevelopment,it is areas to compliment one another. suggested that the market analysis be updated. The three areas are: 1. Core Central Business District —south of railroad, east of KingAvenue The analysis cited this area as best suited for specialty retail and for-sale multi-family housing. 2. Northern Area—north of railroad The analysis cited this area as best suited for service businesses, such as office and institutions,along with rental and senior housing. 3. Western Transition Area—south of railroad, west of King Avenue The analysis cited this area as best suited for multi-family housing. oas of September 4, 2012 -Part I, page 28 - • • • In addition, the report identified sites that have the greatest potential for redevelopment based on the positive impact it would have on the downtown. Primary Redevelopment Sites Elk River Downtown Redevelopment Area 2007 Adjusted Market Analysis The table below reflects the remaining balance of demand 1 t' available after reducing the initial demand by the recent \ development activity that has taken place within the Study Area. These recent developments include: Northern Area « elk Rlv6v Necnlne I - Housing: \ Granite Shores for-rent multi-family 67 units `� Jackson Place apartments 32 units :* i tWestefb en /Office:The Bank of Elk River expansion 20 000 sf Trnsition 3rd St Retail: The Bluffs commercial 10,000 sf ' X* ` t * \ * 6 L-•,W, M.m St Jackson Place commercial 10,000 sf II ��/ Core CBD —"�\~� The balance indicates remaining housing demand to 2010. � Redevelopment proposals that exceed the indicated demand Lit 1,,..1 during that time shall be supported by an up to date market analysis. x Prism,'Redevelopment Sites Otsego Demand Summary ,Retail 2 Ret.aatur Owe or xo„ing Downtown Elk River Redevelopment Area 3 Pert Office eo1ansion 2007 to 2010 4OMre Mullett(Research Inc. 5 Office 6 Office Housing 7 Residential For-Sale M ultifam ily 48 units 6 Residential 9 Office er Howled Market Rate Apartments 300-328 units to L;J.tl„elentt;,t:___- Market Rate Senior Housing 60-70 units Source: M axfield Research Inc. & City of Elk River Draft as of September 4, 2012 -Part I,page 29 - Transportation and Infrastructure priority" highway,whereas Highway 10 is rated"medium priority". Railroad On October 14, 2002,the Elk River City Council adopted The railroad has right-of-way moving approximately 77 trains per Resolution 02-93 "Accepting, Supporting and Adopting the TH day through the area on two sets of tracks. The line carries 10 Interregional Corridor Management Plan". passenger and freight trains. A major pivot point in the 2006 Task Force discussions involved Vehicle and pedestrian crossing concerns may be alleviated if the Highway 10 routing through the study area. These Railroad Drive,which runs adjacent to the railroad,is removed as discussions, and the impact they had on the plan,led the City a frontage road eliminating close access to Highway 10. Council to table the process until the Highway 10 plan could be developed. Through their discussions,the Task Force developed U.S. Highway I 0 a number of scenarios and sketches to visually understand the design implications Highway 10 improvements. These sketches 2003-2023 Statewide Transportation Plan are included in the appendix as they are important to the history No improvements are planned for Highway 10 through the of the planning process, and provide valuable information to the downtown area for many years, according to the Minnesota user in understanding the changes that are coming. Department of Transportation's (MnDOT) 2003-2023 Statewide Transportation Plan. Future Highway 10 Issues In 2008,MnDOT finalized a plan for improvements to Highway Interregional Corridor Management Plan 10 as it routes through the study area, submitting it to the Federal MnDOT completed several Interregional Corridor Management Highway Administration for their review. This plan was prepared Plans in 2001 and early 2002, one of which included the stretch through the collaborative efforts of MnDOT, Sherburne County, of Highway 10 from approximately Highway 101 to Proctor the City of Elk River,and many others. Avenue. The results of the Plan suggested that even if a$21 million (2001 dollars) investment is spent on elevating Highway The proposed Highway 10 improvements represent a significant 10 through downtown, the level of service will not be improved change to the downtown area, and a major impetus for this from an"F"rating in peak times. planning project. In summary, the plan shows Highway 10 evolving into a freeway through the study area. To accommodate If funding were to become available to MnDOT District 3, the the necessary speeds and capacity, the main line will shift to the district in which Elk River is located,MnDOT would most likely north,requiring the Burlington Northern, Santa Fe rail line to fund improvements to Highway 169 in Elk River as opposed to shift to the north,in the area of present day railroad drive. Highway 10 since MnDOT rates Highway 169 as a"high Access to the study area from Highway 10 will be via interchanges at Proctor and south of Main street,with the Dras of September 4, 2012 -Part I,page 30 - _ • • • entrances to the off ramps many blocks away. Local circulation will be handled via a surface frontage road, the southern boundary of which is near the current southern curb of Highway 10 mainline. An underpass between present day Jackson and King will maintain the north south connection of Jackson. Anticipating these access and visibility impacts,it is important that stakeholders work toward establishing the core area as a destination of sufficient strength that it can withstand these changes. Draft as of September 4, 2012 -Part I,page 31 - Historic Context in downtown Elk River and assessed their potential National Register of Historic Places eligibility. The study area encompasses the 432-acre core of the City of Elk The study concluded that none of the 23 properties appeared to River. This core includes many of the first generation homes and be eligible for the National Register of Historic Places. However, first platted neighborhoods in the City. In addition,it is the 5 buildings on the west side of Jackson Ave were recommended Mississippi River and the railroad,both located in the study area, for further preservation study as having significance as part of which largely defines the historic development pattern of the early twentieth-century downtown Elk River and retaining City. varying amounts of their historic facades. These buildings are commonly referred to as the `Brick and S. Main Blocks". In 2002 the HRA and HPC commissioned an independent study of properties within the core downtown area,in response to concerns raised by the Heritage Preservation Commission regarding the then proposed Bluffs and Jackson Place developments. It was conducted by Carole Zellie of Landscape I ' 1 \ ,. Research. 1 ji ji _ ,,:— ,,„14i , ii, „ .- .T Part I of the study outlined six Elk River Historic Contexts for _< which to provide a framework with which to evaluate the historic, architectural, and landscape architectural significance of 4 _ . L', ., inventoried properties. The Elk River historic contexts identified , "'1! y � 4 in the study are: • 1) Landscape Setting, 1848-1950 2) Agriculture, 1850-1950 3) Transportation, 1848-1950 4) Industry and Commerce 1851-1950 ~ Jackson Avenue—Brick Block"Then and Now 5) Residential Architecture, 1851-1920 6) Schools, Churches,and Local Institutions, 1857-1920 Part II of the Historic Context Study included an inventory of 23 properties in the Elk River downtown commercial area. The study assisted in determining the significance of historic resources DI&as of September 4, 2012 -Part I,page 32 -_ • • • In addition to review of the Historic Context Study,the Task Force considered an overview of historically significant properties as identified by the City's Heritage Preservation Commission and policy recommendations. It is the consensus of the Task Force that core downtown area contains much of the history of Elk River, and serves as the cultural foundation of the community. While the area may not be deemed historic from a national or statewide perspective,it is Elk River History,and important in that respect. Every effort should be employed to preserve these buildings to further communicate the link to the past that they represent. Draft as of September 4, 2012 -Part I,page 33 - II. Illustrative Master Plan The Task Force felt that strengthening the perception of the downtown area was a priority. Introduction and expansion of The planning process which resulted in the Illustrative Master amenities, support systems,and activity are necessary to Plan (Plan) consisted of the following three steps: encourage people to come downtown and businesses to locate in the area. The Task Force understands that the history and 1) Task Force Visioning Process character of the study area,in particular the core downtown area, 2) Gathering of Public&Stakeholder Input is not replaceable. 3) City Board and Commission Review The Plan is a tool for shaping development in a manner Task Force Visioning Process consistent with the vision for the Study Area. The Plan uses a The Task Force met over several months starting in 2006. In variety of illustrations to depict the potential redevelopment and 2006, the planning process identified a number of variables revitalization of the Study Area. dependent on completion of a Highway 10 geometric plan. After determining that these variables were too numerous and The Plan is not a specific blueprint,but rather a series of impactful, the City Council suspended the Task Force,pending concepts and opportunities for change. The actual design of each resolution of the Highway 10 plans. This plan was completed in site will be determined through negotiations between the city and November 2008, the Task Force reconvened in November,2011. private parties seeking to invest in the Study Area. The designation of existing building(s) simply sets a basis for the The 2006 Task Force members had developed a Plan that was initial strategy concept for a site,but should not preclude future nearing formal public comment. Upon reconvening, the 2012 redevelopment. task force, after spending some time identifying their goals, agreeing on assumptions, and developing sketches of key "The Plan is not a specific blueprint,but rather a series of components of a successful downtown environment,broke into concepts and opportunities for change." small design charettes over several months to fine tune the Plan. Recognizing that the triggers to major changes are not likely to The Plan seeks to reinforce and create a variety of connections surface in the near term, the task force focused on enhancing the between the Mississippi River,which is unique to the Study Area, quality and value of the core area,as it relates to the Elk River and the rest of the Elk River community and region. The Plan community. The Task Force believes that the downtown area establishes a development framework to guide the necessary serves as the community center. Visitors through and to the relationships between areas of common and varied uses that are downtown area develop perceptions of the Elk River community important in the Study Area's form and function. The images based on these initial reactions. A vibrant,healthy downtown incorporated within the Plan are intended to provide guidance area strengthens the community by extension. Dr t as of September 4, 2012 - Part II,page 1 -_ • Recreational0 ortumties public al design guidelines and small locations along the rivers for P Identify appropriate e development of form access. toward the adoption.area plans after the Plan's adop with Elk River Municipal Utilities to screen or ax p Work w• Elements of the Primary relocate outdoor storage• area,: Illustrative Master Plan throughout the study venues. t jV a trail system arks,and activity Greer ra Establish Area— General Promoting connections to the rivers,p occurrences Greater Downtown i hway signs to highlight historic rove the Highway y imp visual Create interpretive opportunities to visually lighting •;• 4. Identify°pp°rtu sheds n areas of landscaping, and view (farmers markets, 10 corridor by adding activities (f features and removing nei neighborhoods by .. Promote people generating and and enhance single family g concerts,sidewalk sales)activities e expand integrity of sing f ens. festivals, Area: for reinveStr" activity in the Study .;• Maintain the opportunities citizen encouraging the area by: blocks" owntown historic character of k and South Main Core D significant 4. Maintain of the i River as the sig o Rehabilitation Jackson Ave Mississippi public access the water tower at J residential areas Establish the a variety of p o Maintain le family amenity by creating within the 4. ate historic nc smg activities f c o Design ent that reflect recreational a physical connections and e Commemorative signage for new development opportunities,p o Commem standards Establish design past Study Area. o characteristics of the p corridors to enhance specialized commercial land u facilinty)he core pedestrian corn Area: Establish p out the Study hotel,restaurant,banquet Es fib ph erns and identifiable p to at Proctor downtown (e g sin the core 4. patterns and connections use area Hwy building traffic p e Stadium massing of o plain Street to Handk ed use area large scale m the core area o Mau,Street to the mix .;. Protect the larg o Establish id Jackson Avenue c downtown that establish the character of to provide landscape corridors to enhance traffic parking in the core downtown the downtown cable Street Area: diversity of uses in identifiable throughout the Study Use structured p r support`h ry p tte patterns parking necessary patterns and connections thxosg� n o Main Street to Handk area. o Main Street/4th Street o Jackson Avenue -Part II,page 2 Draft as of September 4,2012 North of Highway I 0 • Concentrate mixed uses in taller buildings at the intersection of Main Street and 4th Street to maximize views ❖ Reconfigure roadway patterns through the Study area to of the Mississippi River. respect the Highway 10 future plan. ❖ Manage storm water drainage through a greenway • Concentrate employment generating land uses(e.g. concept that connects Lion's Park to maximize views of the office/medical) north of Highway 10 to bring daytime users Mississippi River. that support the core downtown commercial. ❖ Establish higher density residential around Lion's Park to increase its value and desirability. • oas of September 4, 2012 III - Part II,page 3 -• s • • 1111 .. - - •..-- u ■ ! , .. , -pr. I r •.i 7 s▪ ir -VpR•. ' NiEll ■ I ▪• a w .....ti�..•.1 w i ..▪w... , wpm**-w / •i Public Participation Process A public comment period was opened on September 4,2012. During that month,the Planning Commission,Park Commission, Upon completion of defining the goals,policies and strategies Heritage Preservation Commission, Housing and Redevelopment and the creation of the Master Plan concepts for the area, a series Authority,Economic Development Authority and City Council of community open houses were hosted by the city. The purpose all reviewed the plan. In addition to these meetings, an Open of the community open houses was to receive community House was held. All written comments received during the feedback regarding the planning process and subsequent master month were reviewed by the task force. plan concepts. This was an opportunity to educate the public on the redevelopment potential of the area and gain public No significant redevelopment plan can be universally agreed to understanding for the plan. by all parties,but this plan does represent the consensus of those participating in the process with respect to the relevant issues of In addition to the opportunities for public comment from the time. stakeholders and the community, the Redevelopment Framework was also reviewed for input by the following City Boards and Written public comments received are included in the appendix, Commissions that deal directly with development projects. and summarized here: Dr as of September 4, 2012 - Part II, page 5 -_ • • • 8. Maintain Highway 10 access and visibility to the core Goals downtown area and create enhanced primary traffic corridors through the Study Area to strengthen its Redevelopment Framework Goals connection to the community. 9. Introduce new land uses for the area north of Highway The following Goals are supported by various Policies and 10 that complement the core downtown area. Specific Area Strategies within this Plan that will assist in implementing the long term vision for the Study Area: 10. Maximize long term public investments within the Study 1. Establish the core downtown area as an identifiable asset Area by encouraging a significant amount of private to current and future residents. investment in a way that benefits the community as a whole. 2. Create opportunities to identify the Study Area both as a 11. Monitor the health of the multi family inventory to gateway to the community and as a place of historical ensure its sustainability. significance. (Historical photo sites) 3. Establish the Mississippi River as the significant recreational amenity to the community by increasing public access connections and activities to the river and the Study Area's other recreational amenities. 4. Maintain a philosophy that recognizes revitalization efforts respecting the Study Area's historic context with a vision for the future. 5. Encourage reinvestment in the single family residential areas while maintaining housing affordability. 6. Balance the future needs of vehicular and pedestrian traffic, and accommodate a mix of parking opportunities. 7. Redefine the Study Area in order to increase its economic viability by introducing land uses that can be supported in the long term. Draft as of September 4, 2012 - Part II,page 6 - Policies 5. Identify and agree as a community those buildings that best represent the historic nature of Elk River's past and promote programs that will assist in the rehabilitation of The Task Force developed the following Policies to be used as a those residential and commercial buildings. framework for the long term Plan and Specific Area Strategies: 6. North of Highway 10 should not be an extension of the 1. Through the Task Force Mission Statement,it has been core downtown. The land uses on the north side should: determined that the Study Area needs to be redefined and that substantial redevelopment efforts will most likely a. Not be in competition with the core downtown occur in the future as a response to the market. In order to respond to these changes, a comprehensive b. Compliment the core downtown in terms of redevelopment framework is necessary to guide both design,transportation,pedestrian movement and private and public investment/reinvestment efforts to market opportunities, and ensure that the goals of the community are met in the short and long term. c. Include employment centers to bring daytime users and jobs (e.g. office/medical) to support the 2. The Mississippi and Elk Rivers define downtown's retail in the core downtown. uniqueness and history;these should be emphasized both as a recreational amenity and as an asset enhancement for d. Include opportunities for draws;activity centers, redevelopment opportunities. plazas, etcetera that add visibility and identity to the area. 3. Explore opportunities for public access improvements and activity generation at the Mississippi River,Elk River, 7. Responding to redevelopment opportunities are critical to Handke Stadium,Lion's Park and River's Edge the area. Recognizing that redevelopment is more costly Commons Park in order to achieve a sense of place and and riskier than greenfield development,market triggered connection to the community. redevelopment should be encouraged and assisted. 4. Achieve the preservation of historic character by a wide range of strategies, e.g. new construction design standards to appear traditional,rehabilitation,interpretive signage and special events. Dillies of September 4, 2012 - Part II,page 7 -_ w W w 8. Highway 10 is a physical barrier that will always create a challenge in providing an optimum redevelopment strategy to connect the north and south Study Areas. Although the Study Area does not depend on customer traffic from Highway 10,it is important for this area to be seen and accessed in order to maintain downtown's uniqueness and sense of place in the community. 9. In order to strengthen the Study Area's single family neighborhoods,multiple strategies should be implemented in order to encourage continuous reinvestment, e.g. rehabilitation, code compliance and building removal/rebuilding. Draft as of September 4, 2012 - Part II,page 8 - Specific Area Strategies . Recreational o ''/ '1 �'.' O . • P / 7.7-- ( Opportunities . , ; Objective Statement ' i ® 11!1: The unique recreational j _ .? `` ' amenities located within the N. ( So' Study Area are the Mississippi River, the Elk River,historic - `�_ _f Handke Stadium,Lions Park and Rivers Edge Commons Park. Elk River near the Dam Elk River Meets Mississippi ■ Ill.j . One of the key findings of the community's 2011 branding '1 4 41 t if process was the recognition that Elk River residents are physically • _ active, and the area park amenities are known region wide. This a 1,::, recognition helps form the development of the community's I, 11. ii Powered by Nature brand. The effective preservation and �� expansion of these recreational features will do more to establish © B ' the study area as the hub of the city than any development od" MI Lions Park Rivers Edge Commons Park project devoted to commercial or residential uses of comparable expense. The Plan emphasizes the need to connect these amenities to z ,', provide the public a variety of venues to connect and experience ® ......p .. a ,1 Ani114 the area's historic, cultural and natural environment. Initially, '' these connections will be found via the established routes,it is �� z.`. '' .. envisioned that as properties develop or redevelop, connections Jr along the amenity will be added. Handke Stadium oas of September 4, 2012 III - Part II,page 9 - III 0 • • Strategies - k�` 1. Identify specific locations along the Mississippi River and - _ _ _ _ Elk River,including the islands for certain types of public _ r access opportunities (e.g. fishing, canoeing,boating, : T 4�tr birding, etc.). Incorporate a variety of public access .�-- -` opportunities with improvements that allow the public to ... _ _ ,,, f,;g; ,=•r interact with and experience the rivers. ""'".'-=-�� '— -- - A. ______.� ` --._ - - - -4`. -. 2. Work with Elk Rivers Municipal Utility Commission to - ---- ,,, * ti relocate outdoor storage located along the Elk River and -*, ` l''� • - • »' secure property immediately adjacent to the Mississippi '" 1'µ �a River as a public access recreation and connection , . _ opportunity. ; 4' t'. '1-1. *361:" 3. Establish an integrated trail system throughout the core downtown area,promoting connections to Babcock Park, iiiiiiniiimawimminmainau the confluence of the Elk River, the dam,parks and ` - ., shopping venues. Explore and access grant programs and local community service organizations to support the development of the trail connection. Explore '; opportunities to connect the trail to Otsego and regionally by initiating discussions with area communities ` about their plans. /l%�f� ,�.. ., - /,„ - .:4 ,, Iii, 4. Create interpretive signs to highlight historic occurrences ",..'"\"-'Y� --,:'4*- ,,, ` and experiences along the trail system and throughout the .� _'.*;r,`, ' Y:,* ..„ -,,,., " Study Area * ' -.,, ' . '!''/J '1'i.;I_, 5. Identify key parcels for archeological digs in partnership 's,; with landowners (e.g. mill site). ^;r- v - •/''%, f Historical Signage Draft as of September 4, 2012 - Part II,page 10- 6. Actively promote the linkage between Lion's Park and the ' '�• Mississippi River through a greenway concept as j\ illustrated in the Plan. Explore opportunities to provide wi safe, attractive pedestrian crossings of the railroad tracks , and highway to connect the areas. 11 i. . :--,-- r.--.**014_ . 7. Promote a wide variety of people-generating activities ., -tr ,,�; `� 1,,(e.g. farmers market, concerts, street dances, sidewalk _'- w ;��, �, ;+[ t� '1 sales,etc) in addition to the currently scheduled River's ` ' ^'r,' ;` I",� ^-*4.= - Edge Commons Park activities. „�,': "' ,' N,�w � 1" . 4 •8. Explore acquisition or use of Bailey point and Houlton �i - �,. Farm property as a way to expand the trail in the short 64-, " , term, and long term options to create a nature park that �' { '� may include educational and interpretive amenities along w ' yy t the Mississippi and Elk Rivers. ..• , People-Generating Activities 9. Review and consider potential impacts of DNR Wild& Scenic River Standards on riverfront development in order to protect the integrity of the bluff. 10. Partner with the community's "Elk River Area Arts Alliance" to explore a permanent arts center to be located within the Study Area. 11. Develop a long term capital improvements program that will guide public investment to complete the Plan's recreational components. Dias of September 4, 2012 - Part II,page 1 1 = • II • Core Downtown Objective Statement Due to the effects of time and market changes, the Core Downtown has evolved from being the retail heart of the City to t„ an area that has shifted to office and service uses with the UAW majority of retail moving to the Highway 169 corridor. Activities _ include specialized commercial/ service, and increased A.;. ! f recreational opportunities. Additional residential units are ',1� necessary to support these businesses, especially when traffic v :� ' patterns further evolve away from direct access. 4, r For the downtown to succeed,Downtown needs to become '� �r more of a destination now, so that when access is vastly different, r,'46; ' the businesses have already built up customer base. A Desired redevelopment should not only reflect the Plan elements, ' a but be sensitive to the area's unique historic context,the i pedestrian view sheds and public access opportunities to the i i, d n rf Mississippi River. r ! � • ' • 1 r Mississippi River Granite Shores Project Core Downtown N Residential, Office and Service y .. 'sw v 4 Draft as of September 4, 2012 - Part II,page 12 - Strategies proper mass, scale, and materials that balance new development with rehabilitated and preserved properties. 1. Develop and implement a way finding signage plan, as an added connection between the core downtown area and 6. Develop land use regulations that supports development other neighborhoods in the study area. Transition of high density specialized commercial land uses and high existing regulatory and informative signage to the theme density residential at all price points,provid appropriate established by the signage plan. density rights and/or other incentives to make projects financially viable. 2. Develop streetscape improvements (embellishments) throughout the study area,but centered in the downtown area that could include benches,banners,landscaping, . lighting, all intended to communicate visitors'location as in the downtown area" r "i 0 i:... 'r 3. The City will partner to determine the financial feasibility . of preserving the "Brick and South Main blocks" as both a historical and economically viable assets. Efforts to , _ achieve this result should include a structural survey to determine rehabilitation feasibility, agreement on facade - High Density River Front Development restoration design and exploring options to ensure participation by all affected property owners. 4. Encourage maintenance and upkeep of the`Brick and - .. South Main Blocks" through incentive programs for i I L commercial building code, fire and façade restoration and rehabilitation. Explore incentive programs available 1 .• IN •4 ill t.'4 through state and local resources (e.g. historic tax credits, - EDA loan program, etc.) and communicate information — - -- 30► to property owners. 5. Develop design standards that embody the spirit and Ian intent of the long range vision. Designs should reflect historical elements of the existing downtown structures Downtown Character Through Design Details maximize visual participation to the river, encourage oas of September 4, 2012 - Part II, page 13. III 11111 • 7. Promote the Core Downtown's unique identity as M1 "Mississippi River Connections"within the Powered by Nature brand and establish a marketing design and theme to attract new residents,visitors and businesses to the \trr area. Direct a portion of City marketing funds to assist in the recruitment of highly desirable businesses (i.e. hotel, ti fine dining,banquet/conference facility) to this area. 8. Establish the short and long term parking needs and recommendations as identified within the 2007 Downtown Parking Study,including a variety of options (e.g.ramp,underground, surface stalls,etc.). Explore the feasibility, design and economics of a parking structure with a built-in commercial component. 9. Review and establish parking code requirements in the downtown area, to allow for a mix of private and public Embellishments parking areas,recognizing that an excessive surplus of ✓e V parking is detrimental to the downtown character and its pedestrian friendly design. � ;+►��, . ., 10. Require a traffic and parking demand study for every ; major new project to determine if infrastructure Aht-' ' ' '� <. .a ^` improvements are needed and parking can be accommodated. It, 11. Communicate with the School District on long term plans for their office building. Consider reuse as office or an -. opportunity to expand the parking lot. "haw�� ISD 728 Facility Draft as of September 4, 2012 - Part II,page 14- 12. Explore mechanisms to continue to communicate the redevelopment/expansion successes created by Granite Shores,Jackson Place,The Bank of Elk River and River's HI t Edge Commons Park and the reinvestment they 1 represent. 13. Capitalize an HRA Redevelopment Fund annually and - __ ail N,' develop criteria for the selective acquisition of key � ' I U redevelopment parcels. r 14. Identify current property owners'interest in a sLT redevelopment efforts and assist them by working with 1 1 , I 5• r. � the development community to achieve shared objectives. ' 1 i i'1. I - K . '-` 15. Establish a special taxing mechanism to capitalize an improvement,maintenance, and incentive fund to support the downtown businesses and the infrastructure • 1 t.4 that supports them. 16. Consider a tax increment finance district(s),as * ,P, mar —4 appropriate, as a way to leverage private investment. The l �P`a.NAIL8•SK„H City will actively seek additional public and private F' funding sources to secure redevelopment objectives in the area. - S A L O N x a . i i 1 Dt as of September 4, 2012 - Part II,I, page 15=7 • • • Highway I0 Corridor 041;ow Objective Statement Highway 10 is a central transportation corridor through the City -1 and also serves as the gateway to the core downtown area. E ' Currently, a wide array of highway commercial land uses aligns INAfl1Rf this corridor and the greatest redevelopment challenge is that a number of existing structures have become marginalized. The Plan recognizes that this corridor's image represents the community's health and vitality. IINE ' ' ■ ■rm.—ma.— 1 g � : , �� rr r N r F ■ i If iv* r sal 1:4 „ .......J. 01.I 2„ .111 I !al. ,78 ;;.: •4 : 07\42, ,,,,,.. , ..ai ., t, r I,! ♦ r : P ! •■ • r'/ Mississippi River Draft as of September 4, 2012 - Part II,page 16 - Strategies 1. Work with MnDOT to improve streetscape aesthetics (lighting,landscaping,banners, etc.) 2. The City will assist property owners to redevelop selective sites in order to improve the image of the corridor. 3. Review land use regulations that will promote the Highway 10 Corridor as the City's "front door",protect it from future incompatible land uses,and incorporates -� flexibility for final design changes to Highway 10. , `` . 4. Seek out beautification opportunities (landscaping, art, etc) along the corridor. `•rrr 5. Work with property owners to rehabilitate obsolete Main Street and Highway 10 buildings. 6. Establish educational opportunities to encourage code compliance and improvements by property owners. 7. After City approval on a final design, enter into negotiations with MnDOT to secure an agreement on the implementation schedule and securing potential funding options. Dias of September 4, 2012 - Part II, page 17 • III 11111 North of Highway I0 _ -Jackson Ave and 4th Street Corridors ' Objective Statement While historically identified as part of "downtown", the area Fit north of Highway 10 has evolved over the years into different land uses (e.g. industrial and highway commercial) that no longer p ■6 - F.r�� ■J represent a traditional downtown market. .y1 � a `. n -I I' •• • •mo ll+ ; •i a The Plan recognizes the opportunity to create an improved - "' r' Ma physical connection between the north and south areas of Ea 'ra""' • . ■, . Highway 10, realignment of existing internal roadways, and A le wr°•L..- introduces the concept of employment generators that bring �' I ......110 moll daytime users with a wide range of salaries, and a significant :ti •� IIla.e."W..: • residential component to this area that will complement and �----9 ■ Ap 1.91".....11,„, .... support the core downtown. ii I . .•*' • i''�'.'" MI . •- ■ 1 I IW.Ndibm IMO IS The Plan emphasizes transforming Jackson Avenue, and possibly : ■' .. I '' `� . I' L , II s Main Street, as a parkway that will serve as the central corridors r.� and entrances to the core downtown's commercial, cultural and ,� EP mi i recreational amenities and the rest of the community. ` j ell 1 I. •The Plan describes the area as "mixed use". The goal with this ��,` designation is to identify the need for additional housing and ~t': ,\ employment options in an urban environment. Development and •4 �`.' ---`,, redevelopment of the area should emphasize a high level of :. .' •j design. Where possible, development should capitalize on area .4 A assets, including the Mississippi River, Lions Park, Highway 10 � ' ay�1{" ` ' �+ `� visibility and Highway 169 proximity. Downtown draws ,. .", '' requiring large land area could be introduced to the area. Taller Jackson&4 Street Improved Connections buildings with ground level plazas or gathering spaces are encouraged. Draft as of September 4, 2012 - Part II,page 18 - Strategies OM =MI U . 1. In order to create Jackson Avenue and 4th Street as I I O • OP Is primary corridors, as described in the Plan,an overall • feasibility study should be completed in order to • 111 gill implement the following action steps: • IIP I a. Secure additional right-of-way (100 feet ■ IN minimum) for Jackson Avenue to create an area I I sufficient for parking,trees, sidewalks/trails, lighting, and a center landscaped median. ` ‘ I 111 III 1'.b. Secure additional right-of-way for Jackson , , 1111 �I Avenue and 4th Street intersection and realignment modifications and improvements. "4. ' O c. Vacate Railroad Drive between Main Street and Jackson Avenue to facilitate a safer travel corridor via 4`h Street. ""h,,,, 1 ,/! d. Identify necessary road and infrastructure ♦ , j improvements. ♦ y 1„ 4r y e. Incorporate roadway improvements into the 4 7 I ,;, City's Capital Improvements Program and Jackson &4` Street realignment Transportation Plan. Dias of September 4, 2012 - Part II, page 19= 2 significantly tifY Parcels that at can pl sized arse the an. S s� area for e assembled in available Seek t°acquire r redevelo order to 3. Create to facilitate tlose Patin e s indicated create 0 Street/4th e identifiable redevelopment efforts.n they become • co t/4 Street landscape , 4 connection to Highway 169. Co d°r ion . Y 1�9 Pattern and'Main << Maintain the s d tower as both e sting Jac w.,.�4. asset and 1 a historical Avenue �' an alstructure e& u, 5. Encourage, dmark for futur e and as anSidentifiable et water I/,, _ story-office' thro gh des redevelopment efforts. /4 3 u nt area canbm cgs fo a zoning sin d .� 6. amaze the view sheds and standards,multi- , ,Ai ',i, Review, s to the Street °,:. .. ,1 prey and n1p� .Mississippi negatively t mcOmPatibl existing land P including impact the end use changes use regulations r l , to businesses.restrictio redevelopment ages that to 1�/ restrictions on singlepOten may 4 ,, 1'''' a . 7. Modify land single-family home conversions area, t�;� , ii \% -.t• of emPlO3'rnente regulations sloes Critical ;�;i _.. • 4 and cep and institutional Venerators such support the hand Mark r�r I' 4 ch dev i of the P./an. Street es along esdicaj so l�1nent K .; ■ to west Jackson facilities, further the°perall bvenue objectives fA raft as of S 5*ap » September 4' 2012 Railroad be Looking West est 8. Incorporate high density housing options surrounding Lion's Park to further define the urban character of the Jackson Avenue corridor. Housing shall utilize a wide range of styles and design,with a variety of ownership/rental opportunities,price points, etc. and shall be of significantly different design/style from the mlaIIMIIIIIIIIIMIIftmi existing high density housing inventory. 111111110111114 1nF11111111E COUNT _______,t: —, AA;AIAT DEPT 9. Incorporate medium density urban style town homes along west Jackson Avenue to better define the Jackson '. Avenue parkway. - y- 10. Initiate discussions with Sherburne County regarding the future,long term use of their highway administration building. County Building 11. Promote opportunities to develop green ways and storm willtiht. water retention areas both as an amenity and to treat d `i' storm water within and through the area. WI 12. Capitalize annually an HRA Redevelopment Fund to P 1 i finance acquisition or control of key blighted properties that have negative impacts on the redevelopment , 'g i f potential and/or prevents the implementation of the * \\ Plan's key objectives. v OIL lip Ilk. ! 4 ri let High Density Housing Djas of September 4, 2012 - Part II, page 21 = • • • I Residential Neighborhoods Objective Statement 1 The Study Area's diverse neighborhoods,largely single family in nature, are characterized by a variety of ages, styles, and price points. The health of these neighborhoods play a critical role in t1 the success of the Plan and the collective Elk River Community. k1A►u The Plan focuses on two objectives: the first ensures that continuous reinvestment occurs to strengthen the stability of these neighborhoods, and secondly,identify and establish programs to preserve historical authenticity of selected areas. ., I ' 'rr tir41 `V Ir -vow ill -, . , ' ' .. k grl r _ . r $. . $ ,. Draft as of September 4, 2012 - Part 11. page 22 - Single-Family Strategies 1. Define the edge of the commercial businesses in the downtown area,prevent the migration of business into the adjacent residential areas. 2. Establish land use regulations that protect the areas from inconsistent land uses and provide buffers and transition zones that protect existing single family homes. 3. Analyze and designate, as appropriate,historic housing districts in the area and promote rehabilitation financing programs for continued preservation. Establish design guidelines in order to ensure that infill single family homes and remodeling"fits in" (e.g. similar design characteristics and scale)with the established historic housing district. 4. Encourage single family housing rehabilitation by promoting existing rehabilitation financing programs (e.g. Tri-County Action Programs,Central MN Housing Partnership and MN Housing Finance Agency) to property owners. 5. Explore opportunities to partner with established housing organizations to fund a program that supports a selective removal and rebuilding program of homes in which rehabilitation is financially and structurally infeasible. If programs are not available, the City should analyze the feasibility of establishing an internally funded project. 6. Examine zoning code provisions to allow home expansions while preserving the existing character of the area. 7. Establish educational opportunities to encourage code compliance and improvements by property owners. Dias of September 4, 2012 - Part I I, page 23 = • • • 8. Identify focus areas in which to pursue state and federal grant funds for housing rehabilitation. 9. Implement licensing of single family and duplex rental units. 10. Establish neighborhood groups to assist in promoting and encouraging coordinated housing improvements throughout the area. _ 4 Single Family Neighborhood Draft as of September 4, 2012 - Part II,page 24 - S Multi-Family Strategies °' t wn q t:. I. Carefully analyze any development proposals that restrict either income or rent to ensure that the existing Study '4. , Area maintains a variety of housing options. 2. Ensure that all properties participate in crime-free and .., 4. ./ �` • safety initiatives administered by the City. r yr l I. 3. Establish educational opportunities to encourage code , ,L compliance and improvements by property owners. ip� , . d . 4. Develop a rental housing monitoring system that will serve as the basis for future program development. „~ Multi-Family Housing- Proctor Avenue 5. Encourage multi-family housing rehabilitation by promoting existing rehabilitation financing programs (e.g. Tri-County Action Programs, Central MN Housing Partnership and MN Housing Finance Agency) to property owners. . 5 .1-40( . tr 11` ' ' 1111 ' ' Ii In li i' Hl 7 i,t Multi-Family Housing—School Street D of September 4, 2012 - Part II,page 25 oas Aiik III IP • • • Proctor and Quinn Avenues , Objective Statement F-a The Proctor and Quinn Avenue area is a relatively small area with a variety of incompatible land uses including both residential and -. heavy industrial. ' , Highway 10 improvements will include Proctor Drive intersecting •or, : e , f with Highway 10 via an overpass. This overpass will extend to r x. :, :x�' E the north, over the railroad tracks. This long elevated road will i ' - ;' it create a unique opportunity for the property in the area, altering •,,,, ®f# visibility and access. . ......... Due to the area's proximity to the train tracks and Highway 10 traffic, the Plan suggests business ark uses and employment p p Ym ent e` centers. r'.'` -...:,, ,,,w Mom.'" 11.116°A • ‘ \,, II. \ OlOsellsit ,' ,nt.'t iikb\s„,,,,,_ , . �� MMApp �1111., t ' r. r r - f Future Redevelopment Opportunities—Proctor& Highway 10 i M Draft as of September 4, 2012 - Part II, page 26 - Strategies 1. Work with the development community to identify and explore market opportunities and the feasibility of redeveloping the area as a whole. 2. Work with interested property owners in the development of a master plan prior to rezoning the parcels. 3. Establish opportunities to construct community directional signage and gateway signage along Proctor Avenue.r —\ �T1-' r�...,�mss, � '■ 'i//,'` 1 �,• .- C �h • i-, . AP SIOENTIAL. ` ''e • CE •r „„p WASP `4 1 ATInN 1Z.IP `.A'-1L Adjacent Land Uses Dras of September 4, 2012 - Part II, page 27 = . . • III. Implementation Priorities Implementation Implementation Policies The Mississippi Connections Redevelopment Framework Plan is Redevelopment is an ever-changing process and activity may intended as a framework for the evolution of the area as occur outside the identified Priority Project strategies, therefore transportation,market, and use pattern shifts shape the area. The the City,property owners,and stakeholders should consider the goal with this plan is to recognize these changes and guide them following policies as a framework for decision-making and and the resulting development and redevelopment toward a strategy as the City evaluates potential redevelopment projects preconceived vision. and determines where to direct resources. These policies should It is recognized that the Mississippi Connections Redevelopment serve as the basis for development of a work plan for the Framework Plan will not be implemented in its entirety Housing&Redevelopment Authority. immediately but will evolve over the next 20 years. Thus, the Plan should be viewed as a sound,yet flexible sequence of orderly • The availability of external resources (i.e. grants) and/or developments within the Study Area to achieve the vision. market conditions may create redevelopment opportunities Establishing priorities to create the environment that encourages outside of established short-term priorities. These private reinvestment helps guide the City's decision-making opportunities may be pursued even if they are not part of process and allocation of time and resources. the short-term priority list. The sizes and shapes of the facilities illustrated are not meant as • The City and the Housing&Redevelopment Authority hard and fast rules. They are intended to be suggestions and should examine the creation of a permanent redevelopment points of discussion as to the intensity and options for funding source(s) that will complement the resources development. Each structure must be an individual statement of traditionally available through tax increment financing and architecture,yet fit into the general character of the study area. other forms of public financing assistance. • The Goals and Policies within this Plan,which establish the framework for the Illustrative Master Plan, shall serve as the guiding principles for future City action. Draft as of September 4, 2012 - Part III,page 1 - Priority Projects The following strategies are a reflection of the Task Force's ❑ Create concept drawings for an integrated trail system and work consensus priorities. with affected landowners an implementation strategy. Short Term (0 — 2 Years) ❑ Develop and promote a wide variety of people-generating activities in addition to current scheduled activities in River's Edge ❑ After City approval on final design,secure an agreement with Commons Park. MnDOT regarding potential funding sources. ❑ Identify key parcels for archeological digs along the riverfront in ❑ Identify current property owners'and businesses'interest in partnership with landowners. redevelopment efforts both north and south of Highway 10. ❑ Develop design standards that embody the spirit and intent of the ❑ Identify and promote housing rehabilitation financing programs long range plan for new construction in the core downtown area. that are provided by other entities and applicable to the study area. ❑ Communicate with School District on long term plans for their ❑ Work with Municipal Utilities to relocate outdoor storage located office building. along the Elk River and secure property to create a public access opportunity. ❑ Direct a portion of City marketing funds to assist in the recruitment of highly desirable businesses to the core downtown ❑ Amend the City's Comprehensive Plan and Zoning ordinances to (e.g. hotel, fine dining,banquet facility). match the Illustrative Land Use Plan. ❑ Create through the HRA a redevelopment policy regarding ❑ Implement a Downtown District signage plan.,including parking capitalizing a redevelopment fund and parameters for purchasing and directional signage parcels. ❑ Establish historical point of view context signage. ❑ Establish educational opportunities to encourage code compliance and improvements by property owners within the entire study area. ❑ Review and as necessary update strategies identified within the 2007 Downtown Parking Study. ❑ Establish educational opportunities to encourage code compliance and improvements by property owners within the entire study area. ❑ Work with State Historic Preservation Office to determine structural and financial feasibility to preserve the"Brick and S. ❑ Identify a partner housing organization to fund and support a Main Blocks". selective housing removal and rebuilding program. ❑ Conduct a survey of residential properties to identify and establish ❑ Analyze the need for a single family and duplex rental units a historic residential neighborhood district. licensing program. oas of September 4, 2012 - Part III,page 2 III • • • ❑ Establish neighborhood groups to assist in promoting coordinated ❑ City partnering with property owners and the development housing improvements throughout the area. community to implement redevelopment projects that meet the community vision. Mid Term (3 - 5 Years) ❑ Expanded parks programming aimed at attracting residents to the ❑ Create interpretive signs highlighting historic occurrences along the area. Mississippi River trail after trail is installed. ❑ Promote programs that encourage single family residential ❑ Partner with Elk River Area Arts Alliance to explore funding rehabilitation. concepts for an arts center within the study area. ❑ Continue to assist in the recruitment of highly desirable businesses ❑ Establish a façade restoration financing program for maintenance to the core downtown (e.g.hotel,fine dining,banquet facility). and upkeep of the`Brick and S.Main Blocks". ❑ Continuously seek and secure opportunities to expand funding ❑ Finalize roadway design for north Highway 10 and related sources. intersection improvements. Start the implementation process to create new roadway improvements north of Highway 10. ❑ Work toward full participation and renovation of the`Brick and S. Main Blocks". ❑ Develop a rental housing inventory and monitoring system that will serve as the basis for future program development. ❑ Work with the City Council and City Boards and Commissions on continuous review and modifications to the Plan,as needed. ❑ Explore alternative models for multi-family housing that serve as a catalyst for private development. ❑ Implement a trail system along the Mississippi and Elk Rivers. On-going ❑ Based on demand,work with property owners and development community on redevelopment proposals. ❑ Create a roadway connection that links Jackson Avenue to Lion's Park Drive. Draft as of September 4, 2012 -Part III,page 3 - IV. Appendices •Strengths/Weakness/Opportunities/Threats Analysis •2006 Planning Process •Public Comments (placeholder) •Task Force Resolution (placeholder) oas of September 4, 2012 • - Part IV,page 1 S III III Task Force Stren t hs,Weaknesses, 0.•ortunities, and Threats SWO Anal sis STRENGTHS WEAKNESSES OPPORTUNITIES THREATS • Neighborhood Schools • Small and limited geographic area • New retail and business uses • Competing retail both locally(internal)and from • • • New customer base surrounding communities(external) River • Small critical mass • Lack of commuter rail stop in Downtown • Businesses that are easily accessible • Limited interest in going • Rehabilitation of existing buildings Downtown by people • Possible bypass of Highway 10 • Nice homes • More public gathering spaces for social • Everyone knows your name activities • Continued expansion of Otsego/Highway 101 • Churches area • • Age of existing real estate • Outdoor dining Authentic small town character • Traffic issues(congestion,increased traffic, (buildings) • Lack of reinvestment • Blank slate north of railroad tracks crossing Highway 10,etc) • Opportunity for individually • Highway 10 and railroad divides • More riverfront development • Value of housing stock going down owned businesses(affordable and area and people don't want to cross • non national chain) More access to River • Land speculators(buying homes and renting them • Limited access to River until they can put together large enough parcel to • Personal Touch—Everyone knows • Tie north and south areas together develop on) your name • Parking • More residential development • Economic fluctuations in general • Nostalgia/sentiment • No grocery store • Moving west of Downtown to develop • Noise(Highway 10 and railroad) • Identifiable location • Lack of variety in businesses • Enhance Handke Center • Not leasing out existing retail in new redevelopment • Variety of services • Not pedestrian friendly(snow issues,biking,etc) • Current redevelopment efforts lend projects • Charm/Character(lights, credibility • Land locked for River access/trail streets,etc.) • Traffic congestion • to outside investors • Market saturation • Local financial institutions • Delivery trucks (anchors) • North Star Rail and depot location • Raising rents for existing businesses • Lack of fine dining • Safe environment • Screen railroad tracks and create buffers • Through traffic • Lack of benches or places to sit outside • Public gathering places(new • Put in trail system along the River • Increasing land acquisition costs • New residents have an unfamiliarity park) with Downtown • Promote an authentic Downtown • Changes in eminent domain laws • Proximity to Otsego retail • Limited connectivity of north and • Incubator businesses • Fear of change • Heritage/history south areas • Corridor to cross Highway 10 and railroad • • Market saturation tracks Lifestyle to support Downtown(convenience,price • Connectivity(Highway 10,rail vs.nostalgia,lack of interest and lack of road and transportation) • Attract more residents to live Downtown wanted/needed services) • Public facilities in close proximity • Cost to upkeep aging real estate (City Hall,Library,future YMCA) • Interest in viable business that wants to expand(no are to expand to Downtown or viability is no longer there since interest has moved elsewhere in the community) Draft as of September 4, 2012 - Part IV,page 2 - 2006 Planning Process Initial Small Group Concepts - May 7, 2007 meeting Group #1 Concept • Utilize Mississippi River views through"view shed"areas • Utilize downtown park as a"people generator", connect the park to Handke Stadium and the rest of the river via a trail • Leave Highway 10 at-grade ' • Use Babcock's Point , ' • Leave Jackson Ave/Highway 10 intersection as the "prominent" downtown intersection �- ❖ Make Jackson Ave into a boulevard, connecting north lowsielw and south sides of Highway 10 through prominent Task Force Design Charette Sketches corridor design • Provide employment opportunities north of Highway 10 ❖ Protect single-family neighborhoods north and south of Highway 10 • Continue redevelopment west along Main Street in core downtown Das of September 4, 2012 - Part IV,page 3 - • ,_ , . ,- ) _ .,-- ,T'''''s Sy. , ----- (ti, U w� M °IPA -b/1-, ___J(IY",P.c' n'16.1fi . - ' '}*:\‘, /,,/:" i' ' '' , .'-' *' r- M :77;- ? 4 es�gn Gharette Sketches Task Force D Pact �V ,page 4 f Septe bet 4 2p ' -1-...aft 0 - 12 Group #2 Concept • Use Jackson Ave as a tree-lined "feeder" to core downtown ": ,; , .. + ,,,11. Ar 1 • Focus early redevelopment efforts north of Highway 10 Vs -,4 Lr ra ?p_: a . , p ' i • Provide river connections ;'_ �,, j '. . { 1, 1: o• Consider options for intersections on Hwy 10,including ... • x •. leaving them "as is" ._. • = "` iTiq• x • Provide employment opportunities north of Hwy 10 d: • Provide transitions in land use that protect remaining single-family neighborhoods north of Hwy 10;protect /' 1 existing single-family homes south of Hwy 10 Task Force Design Charette Sketches • Use Babcock's Point Drtas of September 4,2012 - Part IV,page 5 = • • III Refined Large Group Concept-June 4, 2007 meeting • Highway 10 Frontage from Jackson Avenue to Gates o High scale commercial/office building at intersection of ❖ Core Downtown Main Street&Railroad Drive to maximize view of river o Maintain the"Brick Block" through rehabilitation o Allow for redevelopment of area between The Bluffs& + East Main Street Connecting to Highway 169 First National/Dare's 0 Redevelop as commercial(office/service) rather than o Proper scale,e.g.row homes,to buffer single-family single-family residential homes and new developments o Alley to serve as main access to buildings along o Main Street between Morton&Lowell should be Main/minimal setbacks along Main to obtain"urban feel" considered a good transition area between new o Continue tree-lined parkway along Main Street to Hwy 169 developments&single-family homes o First floor commercial to be based on market demand + Quinn Avenue Area o Discourage"leapfrog"redevelopment o A separate redevelopment study of this area should be o Utilize design standards to promote historic"look" for completed new buildings o Conduct traffic studies on a project-by-project basis to determine roadway improvements for certain land uses -.�----• �- 1-�/ i !- i o Remove outside storage to incorporate a public access to ,I1. ill 1 :.i_ Mississippi River(at Municipal Utilities building) ii- `,.• .. i . '--=�.` ' t East Jackson Avenue Corridor " • !.�•; r 1 •.- L4:.! .-° ,-- o Jackson becomes a tree-lined parkway design as primary .fr..: ...•; -.A, g..1 ,-' corridor *41•-••:.; ' `; t.7.. '' I'1 .•i g o Single family homes fronting east Jackson may be removed 1� 1� ;.�• w: to accommodate live/work structures ;+ - •+s. :: ! '� .� ;'�j .w .�'�. ,'i. a • • -I- o Alley to serve as main access to buildings along --- %' •. •-• r • ''-'-.o a - Jackson/minimal setbacks along Jackson to obtain"urban -___ ' ••,! ' :-.....4 ill I r'A ♦r .•■- ..!0•11 feel" 14 -•- g • West Jackson Avenue Corridor Including the Current Industrial Area THE 20 YEAR VISION o High density residential abutting Lion's Park o "Anchor"commercial/institutional land use needed on southwest corner of Jackson&School Street Figure A-Overall Land Use Concept o Create roadway connection between Jackson&Lion's Park Drive Draft as of September 4, 2012 - Part IV,page 6 - a U t� LTHE 20YEARVISION ;a0'.'..� ; .L. 11 '47: "� ------c---/I ��`/�� .' g,-,0, f� L--____, Cx ' t�J i+.� - '•It.� •:- r !.. �d 111.111111.11411.1.11116141.111/111.■ oicZoimi"--41 % __-__ r , ,_.'' Rs]. 4.1.'■. I --- \ % 6) o cl, a _ :i.: zz:i , .....____,, . :.: I -,,,, . - , ----7- -3. 1:-7 EiZi it.,„. 4 "LI / ../----7/1---________ 1 •.. 4, 0 I r-- '1✓ I - �J 110,14/ '� THE 20 YEAR VISION � i 0E,GY(1.k.i7E ' 1' ' IMO MEM gun - ' - Figure B-Main Street View Sheds to Mississippi River Figure C-Trail Loop and Pedestrian Connections ' ,- ' '-'--!rm.. V I Iii- - '------- V-" - .. „� ty �d --_ l � '/ti �+�,�`� ■ s Zi�,q'' \ '! i , k �� €� lip-�.�"!�° . � s . f t t .- -4'71 ,Aiiiiiiiiv 471" „op "' ,,, ..1. ft . 1111%.„,,,,-.'4 `.4. \ WO r N L.. M r s .. - . Anis 1 Figure D-S. Hwy 10 Looking North to Jackson Ave Parkway Figure E-Main Street Detail Looking Southeast D Las of September 4, 2012 - Part IV,page 7 = • • s Refined Large Group Concepts —June 4, 2007 meeting Q .1„,._ — 1, Illa THE 20YEARVISION ��/� , RENNEO%ACMES f MOM THE NRY 7 E001 .._ :� . DESIGN C,WEAE _ - _ 114._,. Z7 4-1 __ ir ;, hiIr-----7------r --:._:-:- _,, _ _ . 00 ' ■ I i TI--- - / , 1 -1, li_ —‘\- == . I _ wit _ i ; ,Hii. Er AINIIIMIIMIMMMK -ill. � Figure G •,4 °d - {_- - North Hwy 10 Looking South Along Jackson Ave Parkway _ (' i e t y 1tui7 rf— .,_--, ,t_ [ ! Of 1 T ' .-:. . L-T-, Iti.i.".... ........... ,iiir,ifr... ---ial.i_w----■-111 J ` . i ,r., ��'' , i. _ A ��,�rim-Figure F 'C-e, / �' North Hwy 10-Jackson Ave&4th Street Corridor Refined 1/� ;'�� `"' A , Figure H North Hwy 10 Looking North Along Jackson Ave Parkway Draft as of September 4, 2012 - Part IV,page 8 -