9.2. HRSR 03-06-2017 EOty1� ,.,�� Request for Action
River
To Item Number
Housing& Redevelo ment Authori 9.2
Agenda Section Meeting Date Prepared by
Work Session March 6, 2017 Amanda Othoudt,EDD
Item Description Reviewed by
Main Street Property Redevelopment Plan Cal Portner, City Administrator
Reviewed by
Action Requested
Discuss the long-term plan for redeveloping properties along Main Street in accordance with the
Mississippi Connections Plan.
Background/Discussion
The Mississippi Connections was adopted by the City Council on December 3, 2012. The plan outlines
the redevelopment framework which was designed by necessity to have a long term horizon for
completion.
Staff will present the long term plan for redeveloping properties along Main Street.
Financial Impact
The HRA has budgeted $20,000 to implement the Mississippi Connections Plan
Attachments
■ Mississippi Connections Plan
POWERED 6T
A IR
November 19, 2012 - Part I Executive Summary, page 1 -
Executive Summary
Mississippi Connections Redevelopment Framework Plan
The downtown area of Elk River is the oldest part of the City and
has long been considered the heart of the city. This area, the
businesses in particular, have seen shopping patterns change,
impacting the success of their businesses. Further, the
downtown businesses, and the residential neighborhoods
surrounding it, will be impacted by expected changes to Highway
10 in the next 2 decades. Highway 10 will evolve to an urban
freeway in the future. It is not known when this will occur, but
we know that it will further alter traffic patterns and impact
businesses and homes in the area. Unaddressed, these changes
can be devastating to fragile neighborhoods and businesses that
are important to the Community of Elk River.
This document is intended to provide guidance to property
owners, stakeholders, and community leadership to position the
area in such a way that strengthens the area to survive the impacts
of time and change; methods to reestablish the downtown area as
a destination; a desirable address to do business, live, and enjoy
the diversity of uses in a character rich downtown amid the hustle
and bustle of a growing community.
The Plan was prepared by a City Council appointed task force
comprised of 18 members representing a variety of community
interests. Deliberations took place over a period of eleven
meetings which covered a one year time period in 2006 and 2007.
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
Framework provides the blueprint for creating an
environment and culture that encourages private
reinvestment. This environment will be characterized by a
robust business climate, strong affordable residential
neighborhoods, diverse recreational opportunities, an agreed
upon transportation framework, recognition of its historical
place, and enhancing opportunities for connections with the
community.”
It soon became evident that expected changes to Highway 10
(originally identified during as part of the 2002 Inter-Regional
Corridor Plan) would have a far greater impact to the downtown
core than originally thought. To gain a better understanding of
these changes, the City Council tabled the Task Force in 2007,
and worked with MnDOT on a more defined Highway 10 plan
through the City. That plan was approved in late 2008.
The task force was reconvened in 2011, adding more resident and
business representatives. Over 10 months starting in 2011, the
Task Force reviewed the plan, updating it to address new
information and goals. This Plan represents both the approved
…“To develop a comprehensive plan that will
redefine the “greater downtown area” to preserve
its historical character while promoting the future
viability of the community”… (Excerpt from the
Task Force Mission Statement)
November 19, 2012 - Part I Executive Summary, page 2 -
Highway 10 planned improvements and the task force’s response
to those changes.
The nature of a redevelopment
framework plan demands
imagination, a strong vision, and
patience. The framework is both a
strategic and tactical description of
how a community will address
complicated issues such as
changing markets, commitments
to a process and defining an
ultimate vision for the future.
The following is a summary of the
Task Force’s philosophy behind
the framework, some of the key
planning elements, and comments regarding its implementation.
The mission and vision statements, as shown at the top of this
section, drove the formation of this plan.
1. 20-Year Vision- the redevelopment framework is
designed by necessity to have a long term horizon for
completion. However, this reality should not serve as
deterrence to either starting the plan or waiting for ideal
market conditions. The framework’s “Implementation
Priorities” articulate, in detail, tasks needed to be done within
the first three years of plan initiation followed by long term
objectives. Working hard in the first three years to establish
momentum and excitement will serve to propel the vision
forward with commitment and conviction.
The collection of small projects builds more momentum
from property owners, stakeholders, and other interests.
2. “Redefine”- the strongest operative words found within
the mission statement is…’redefine the “greater downtown
area”’…. The word “redefine” carries with it both the most
controversial aspect of the redevelopment framework
(physical change) but it also explicitly conveys the hope and
vision of the plan. The intent of the framework is to respond
to time and market changes that have already occurred, and
to redefine a context for present and future
development/redevelopment opportunities, offering
guidance and opportunity for the area to survive these
changes, many of which establish a development pattern
much different from what the area was formed under.
“Redefine” becomes both the vision and the intrinsic value of
recognizing the need for careful and guided change.
3. History- the greatest challenge to the Task Force was
creating a framework that balanced future changes with the
area’s history and environmental assets and opportunities.
The framework anticipates saving major core downtown
block of buildings at Jackson and Main, the water tower,
reinvigorating the single family neighborhoods, re-
establishing the Mississippi and the Elk Rivers as a
commemoration to past history, by constructing interpretive
signage and venues that tells the “Elk River Story”. The
framework envisions, in part, the creation of a new history
committed to attracting the community as a whole to enjoy
this area’s uniqueness and opportunities. Building on our rich
history will take time and patience but this objective is a
critical tenant of the plan.
This vision, albeit
appearing idealistic in
form, is a long term
plan that allows the
City to guide its own
fate as development
and redevelopment
opportunities present
themselves to the
community.
November 19, 2012 - Part I Executive Summary, page 3 -
4. “Core Downtown”- the Task Force’s vision is based on a
future market that will seek rehabilitation and redevelopment
opportunities, especially for properties situated along the
Mississippi River. The plan seeks to establish the “Brick and
S. Main Blocks” as the center for historical rehabilitation and
creates a path to determine the economic viability of this
objective. Lastly, the plan attempts to provide opportunities
to draw people to the core downtown. Festivals, markets,
music events, in addition to physical connections to the river
to promote the core as a destination, a characterization that
will be more and more important as travel patterns evolve
away from the direct access currently employed.
5. Single Family Neighborhoods- the redevelopment
framework’s philosophy started with the premise of
preserving the single family neighborhoods, some for the rich
asset of affordability and other sectors for their historical
quality. A goal of the plan is that the commercial
redevelopment and reinvestment successes on both sides of
Highway 10 will translate directly into reinvestment interest
by residential property owners.
6. “North of Highway 10”- the area of most significant
change is the 5 block area north of Highway 10. The Task
Force envisions that as market dictates, this will evolve into a
destination neighborhood. An “employment center” (e.g.
office, medical, institutional) to bring daytime users that
support the core downtown commercial is envisioned.
Additionally, a higher density residential component should
be located abutting Lions Park, coupled with a greenway and
strategically located storm water assets. This Study Area also
creates the greatest challenge for redevelopment due to the
type of existing buildings, number of buildings, limited
inherent physical assets, and no immediate strong market
demand. All of which will be necessary in order to create the
magnitude of real estate value that would make
redevelopment feasible. While market driven, any
redevelopment of this area will likely require taxpayer
assistance, in the form of financial incentives and assistance,
regulatory changes, and land acquisition.
7. Commitment to Implement- no redevelopment
framework has value until commitment to implement is
agreed upon by all affected parties; this community consensus
is only initiated by the City Council’s adoption of the Plan.
With this consensus, an agreed upon set of priorities and a
work plan is established to begin the process of creating the
foundational steps of the Plan.
8. Financial Commitment- due to the economics of
redevelopment and revitalization, no vision can be
implemented without a major financial commitment by the
City. Some of the redevelopment costs will realistically have
to be absorbed through the use of tax increment, tax
abatement and other forms of public/private participation. In
addition, taxpayers should anticipate the City may have to
capitalize rehabilitation related funds and commit to
significant capital improvements involving open space and
other infrastructure costs.
In conclusion, the Mississippi Connections Redevelopment
Framework serves as a collection of prioritized tasks and
goals. Elements of the framework may have to be altered
over time but the commitment to start the implementation
inherently to pursue the redevelopment objectives vigorously
should translate into making this part of Elk River strong and
sustainable.
November 19, 2012 - Part I Executive Summary, page 4 -
AAcckknnoowwlleeddggeemmeennttss
Redevelopment Framework Task Force (2006-2007)
Mark Urista (Chair) Business Representative
Dana Anderson Planning Commission
John Anderson Resident Representative
Keith Holme Business Representative
Louise Kuester Housing & Redevelopment Authority
Jean Lieser Housing & Redevelopment Authority
Lance Lindberg Heritage Preservation Commission
Molly Nadeau Resident Representative
Mike Niziolek Park & Recreation Commission
Dave Rymanowski Business Representative
Larry Toth Housing & Redevelopment Authority
Dan Tveite Economic Development Authority
Stewart Wilson Housing & Redevelopment Authority
Redevelopment Framework Task Force (2011-2012)
Dana Anderson (co-Chair) Planning Commission
Stewart Wilson (co-Chair) Housing & Redevelopment Authority
Mark Urista Business Representative
John Anderson Resident Representative
Keith Holme Business Representative
Louise Kuester Housing & Redevelopment Authority
Jean Lieser Housing & Redevelopment Authority
Lance Lindberg Heritage Preservation Commission
Molly Nadeau Resident Representative
Chad Wurm Resident Representative
Jim Hudson Resident Representative
Pat Dwyer Business Representative
Mike Niziolek Park & Recreation Commission
Alan Sakry Business Representative
Fred McCoy Business Representative
Larry Toth Housing & Redevelopment Authority
Jerry Gumphrey EDA/ City Council
Nick Zerwas EDA/ City Council
Board/Commission/Public Input
City Council
Economic Development Authority
Housing & Redevelopment Authority
Heritage Preservation Commission
Parks & Recreation Commission
Planning Commission
Framework Plan Area Stakeholders
General Public
Technical Advisory Team (2006-2007)
Scott Clark Community Development Director
Catherine Mehelich Director of Economic Development
Heidi Steinmetz Assistant Director of Economic Development
Jeremy Barnhart Planning Manager
Chris Leeseberg Planner
Terry Maurer City Engineer
Bill Maertz Park & Recreation Director
Stacie Kvilvang Ehlers & Associates, Inc.
Michael Schroeder LHB Architects & Engineers, Inc
Technical Advisory Team (2011-20012)
Jeremy Barnhart Planning Manager
Chris Leeseberg Planner
Annie Deckert Director of Economic Development
Justin Femrite City Engineer
Calvin Portner City Administrator
.
November 19, 2012 -Part I, page 5 -
TTaabbllee ooff CCoonntteennttss
Executive Summary
I. Introduction
Background
Task Force Mission Statement
Mississippi Connections Vision Statement
Study Area Defined
Statutory Authority
Summary of Existing Conditions
II. Illustrative Master Plan
Goals
Policies
Specific Area Strategies
III. Implementation Priorities
Figures
Study Area Map I.8
Focus Areas Map I.9
Retail Shift Map I.11
2-5-mile Radius Competition Map I.12
Elk River in the Next 10 Years Map I.13
Land Use Chart I.14
Land Use Map I.15
Zoning Map I.16
Year Built Map I.17
Market Value expansion I.19
Previous relevant studies I.21
Market Demand Summary I.29
Primary Redevelopment Sites I.30
Illustrative Master Plan II.4
Recreation Opportunities II.9
Core Downtown II.12
Highway 10 Corridor II.16
North of Highway 10 II.18
Residential Neighborhoods II.22
Proctor and Quinn Avenues II.26
IV Appendices
Strengths/Weakness/Opportunities/Threats Analysis
2006 Planning Process
Public Comments (placeholder)
Task Force Resolution (placeholder)
November 19, 2012 -Part I, page 6 -
II.. IInnttrroodduuccttiioonn
This document describes the formation of the Downtown Task
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
River. The purpose of this Plan is threefold: to serve as a
blueprint for the City to respond to private investment proposals,
and as a work plan for the City to create and maintain an
environment in a manner consistent with the community’s vision.
Lastly, the plan is intended to communicate to property owners
and those interested in the area the City’s long term goals for the
area.
This document consists of four sections:
1. Summary of Existing Conditions provides the
background information used to shape the Plan.
2. The Vision and Illustrative Master Plan provide a visual
representation and description of the type and character
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
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
investment to Elk River.
a. Background
The City Council created a Task Force on October 2, 2006 for
the purpose of creating a Plan for the “greater downtown area”
and to provide direction and frequent feedback to the Technical
Advisory Team made up of city staff and consultants.
The Task Force paused in late 2007 to allow for the completion
of the Highway 10 plan as it routes through the downtown area.
Following completion of the Highway 10 plan in early 2009, and
the review of the Highway 10 plan at the Federal level, the Task
Force reconvened in November 2011.
This Plan was developed based closely on the desires and vision
of the Task Force members, representing various interests
throughout the City.
November 19, 2012 -Part I, page 7 -
b. Task Force Mission Statement
Following City Council’s appointment, the Task Force developed
and adopted the following mission statement which describes
their role in the creation of this Plan:
c. Mississippi Connections Redevelopment
Framework Vision Statement
The following vision statement summarizes the end objective,
purpose and intent of the Plan:
Mission Statement –
To develop a comprehensive plan that will redefine the
"greater downtown area" to preserve its historical
character while promoting the future viability of 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.
Vision Statement –
The Mississippi Connections Study Area is the cornerstone of
the community. The Redevelopment Framework provides the
blueprint for creating an environment and culture that
encourages private reinvestment. This environment will be
characterized by a robust business climate, strong affordable
residential neighborhoods, diverse recreational opportunities,
an agreed upon transportation framework, recognition of its
historical place, and enhancing opportunities for connections
with the community.
November 19, 2012 -Part I, page 8 -
d. Study Area Defined
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
referred to herein the Plan as the “Study Area”.
The Study Area encompasses the 432-acre south central core of
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.
The Focus Areas are:
Core Downtown
Recreational Opportunities (Mississippi and Elk Rivers,
Handke Stadium, River’s Edge Commons and Lion’s
Park).
Residential Neighborhoods
North of Highway 10 (Mixed use redevelopment
opportunity)
Proctor and Quinn Avenues
The Study Area stems west, north and east of the core downtown
area and is bisected in half by east/west transportation corridors
– U.S. Highway 10 and the Burlington Northern Santa Fe
(BNSF) Railroad.
November 19, 2012 -Part I, page 9 -
cus Areascus Areas
November 19, 2012 -Part I, page 10 -
e. Statutory Authority
Formally established by the City Council in 1980, the Housing &
Redevelopment Authority (HRA) in and for the City of Elk River
was formed under the public purposes identified in Minnesota
State Statutes Sections 469.001 to 469.047 (Housing and
Redevelopment Authority Act).
The Housing and Redevelopment Authority Act grants
municipalities the authority to designate redevelopment areas
within the boundaries of the municipalities. Within these areas,
the municipality may adopt a redevelopment plan and establish a
project consistent with the municipality’s public purpose. The
projects as contemplated by this plan are consistent with the
definition of a “Redevelopment Project” as defined in Section
469.002, Subdivision 14. Essentially a “Redevelopment Project”
includes any work or undertaking:
1) To acquire blighted areas and other real property for the purpose of
removing, preventing, or reducing blight, blighting factors, or the causes
of blight;
2) To clear any areas acquired and install, construct or reconstruct streets,
utilities and site improvements essential to the preparation of sites for
uses in accordance with the redevelopment plan;
3) To sell or lease land so acquired for uses in accordance with the
redevelopment plan;
4) To prepare a redevelopment plan, and to incur initiation, planning, survey
and other administrative costs of a redevelopment project, and to prepare
technical and financial plans and arrangements for buildings, structures,
and improvements and all other work in connection therewith; or
5) To conduct an urban renewal project. The term “urban renewal project”
may include undertakings and activities for the elimination or for the
prevention of the development or spread of slums or blighted or
deteriorating areas and may involve any work or undertaking for that
purpose constituting a redevelopment project or any rehabilitation or
conservation work.
Assuming that redevelopment will occur in multiple phases, the
HRA and City Council have previously adopted a series of
incremental redevelopment plans within the greater downtown
area in order to satisfy Statute 469.028, which requires the HRA
to adopt a redevelopment plan prior to accepting a development
proposal.
Phase I - In November 2004 the HRA and City Council adopted
a Downtown Phase I Redevelopment Plan in conjunction with
Tax Increment Financing District No. 21. Phase I is known as
Granite Shores and Jackson Place project, which resulted in a
total of 67 for-sale condominium units, 32 rental units, and
approximately 20,000 square feet of commercial lease space and
underground parking. The original name of Granite Shores was
The Bluffs of Elk River.
Phase II – In November 2006 the HRA and City adopted a
Redevelopment Plan which allowed the HRA to secure a contract
for deed on property in order to potentially expand the King
Avenue parking lot in the future. The property consisted of two
contiguous buildings, 716 Main Street and 720 Main Street,
commonly known as “Main Street Mall”.
Phase III - The Illustrative Master Plan is considered the next
phase of the City’s redevelopment planning process. Although
this Plan is not in reaction to a specific development proposal, it
serves to satisfy the statutory requirement for the City to adopt a
redevelopment plan prior to accepting and undertaking
development proposals within the study area.
November 19, 2012 -Part I, page 11 -
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The Plan grew out of information collected and considered by the Task Force over several months. This section of the Plan highlights
some of the key data sources that contributed to the planning process.
The Changing Face of Downtown
Historically, Elk River was a “freestanding community” (characterized by distance from the metropolitan area, self- contained economy,
and limited transportation routes). An essential element of all freestanding communities was a core downtown area that served a highly
agrarian economy. As is the case with many cities that are on the edge of the metropolitan area, the form and function of our downtown
has changed based on a series of factors, these being:
Incorporation of the City of Elk River and the Township in the
late 1970’s started the process of land development through
public utility extensions.
As part of this process, the TH 169 corridor opened to
commercial development ultimately creating competition for
the downtown area, starting in the early 1980’s.
Over the past thirty years, shopping habits have shifted to
larger complexes of value and destination shopping.
Loyalty to shopping areas has been replaced by value attached
to location and accessibility.
As retail moved out of our downtown area it has
been replaced with office uses. Less retail starts the
chain of other retail uses not having a significant synergy to exist and in turn, seeking other market areas.
The economic downturn starting in 2008 has hampered ability of smaller businesses from opening or continuing businesses. It is these
businesses that are the primary market for a downtown area of our size.
November 19, 2012 -Part I, page 12 -
Some of the challenges for the downtown area will include:
The Natures Edge Business Center and the Northstar Corridor will challenge market share from the downtown area
CORE (Ramsey) and Waterfront East (Otsego) provide greenfield development opportunities for businesses and housing not unlike
those necessary for the vitality of the study area.
The loss of direct access from Highway 10 will hinder some businesses that rely on convenience sales.
The lack of privately owned parking suggests a perception that there is not enough parking downtown, hampering business traffic.
Future commercial development in the gravel mining.
Limiting the City’s population to 35,000 reduces the need for expanded commercial services
Commercial Radius
November 19, 2012 -Part I, page 13 -
10 Year Projections
November 19, 2012 -Part I, page 14 -
Tax Classification Acreage Square feet*# of parcels
Single Family Residential 193.71 481,516 511
Apartments
(4 or more units)10.34 293,376
Low Income Rental 0.46 92,516 2
Residential (2-3 units)5 n/a 9
Charitable Institutions 0.8 3,381 2
Church Properties 5.15 128,093 19
Commercial 87.38 547,520 102
Commercial (over 150K)6.37 88,311 20
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 0.25 n/a 1
Other 2 n/a 6
Totals 348 1,815,709 745
* Building square feet estimated
15
Land Use
The study area contains the following current land uses based off of tax classification information registered with Sherburne County.
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.
November 19, 2012 -Part I, page 15 -
Land Use Map - Partial
November 19, 2012 -Part I, page 16 -
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.
November 19, 2012 -Part I, page 17 -
Year 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.
November 19, 2012 -Part I, page 18 -
The Need to Redefine
To evaluate the need for redevelopment, the Task Force
completed a series of exercises and small group discussions.
Characteristics of “Downtown” Exercise
The first exercise asked Task Force members to define the
“Components of a successful downtown” and describe “What
downtown means”. Their responses included the following in no
particular order:
What makes a downtown successful?
“Heart” or center
Nostalgia
Authenticity
Unique/traditional (sets us apart from suburban
development)
Past, present and future planning
Shopping/eating
Why do you come downtown?
Diversity of activity
Destination
Tradition
Special events/ entertainment
How do you know when you are downtown?
Mass of historic buildings
Signage
What does downtown mean to you?
Vitality
Interest, not necessity
Commercial, retail and service
Connectivity, transition, cohesive
New residential
Accessibility
o Pedestrians
o Traffic flow/access points
o River
History
Activities/amenities
Aesthetically pleasing
Balance of old and new
Charm, pleasant feel
Brick and south Main Blocks
What should downtown have that it doesn’t
Embellishments (flags, plantings, color)
Specialty businesses
Signage
Directional
Informative
Strengths, Weaknesses, Opportunities and Threats Exercise
The second exercise involved a discussion of Strengths,
Weaknesses, Opportunities and Threats, a summary of which is
provided in the Appendix.
It was a result of this exercise in which the Task Force reached
consensus that “Downtown Elk River” has already changed, as a
result of time and market, to a point where it is no longer the
thriving commercial center it was 50 years prior. Further,
consensus was that “Downtown Elk River” needs to reinvent
itself as the historical, cultural, and energetic core of community.
With the core established and strengthened, the service and office
uses will reemerge in the area, even when changes to Highway 10
require more destination driven trips.
November 19, 2012 -Part I, page 19 -
Recent Public & Private Investments
There have been a number of significant private improvements to
the area in recent years.
First National Bank of Elk River
First National Financial Center Building (Year 2000)
The Bank of Elk River Expansion (Year 2005)
These private investments contribute significantly to increase the
city’s taxable market value and maximize the benefit of public
investments as shown in the table below:
Market Value Expansion
Project Market
Value Before
Estimated Market
Value After
Add’l
tax
payable
2012
Granite Shores $833,225 $9,241,600 $89,963
Jackson Place $175,800 $3,221,800 $36,092
The Bank of
Elk River
Expansion
Project
$1,395,600 $4,239,300 $56,874
$2,606,100 $13,902,900 $182,929
Before After – Granite Shores
Before - Jackson After - Jackson
In 2001, the Elk River Housing & Redevelopment Authority
(HRA) determined that downtown Elk River’s long-term vitality
should be a community goal. At the same time, several key
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
revitalize downtown Elk River. After receiving five development
proposals, the HRA and City Council selected MetroPlains
Development to further refine their development concepts.
Five years later, concepts turned into reality and Granite Shores
and Jackson Place redevelopment projects were constructed. The
projects added approximately 20,000 square feet of space for new
businesses and over 100 new residents to the downtown.
November 19, 2012 -Part I, page 20 -
As a result of these private investments, the City was able to
expand the King Avenue parking lot and construct the long-
awaited River’s Edge Commons Park.
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
November 19, 2012 -Part I, page 21 -
Previous Relevant Studies
Over the years the City has conducted several studies of the area
in an effort to continue to encourage redevelopment and
revitalization of downtown.
The objectives identified by these studies remain relevant thirty-
five years later. These objectives demonstrate the long-term
nature of redevelopment planning. The 2007 Redevelopment
Framework Plan validates many of these objectives, as
summarized below:
1970 – Elk River Central Business District Report
Prepared by Nason, Wehrman, Knight & Chapman, Inc.
The report established general guidelines for the physical
appearance, movement patterns and development potentials for a
20-year timeframe.
Primary objectives included:
Unify existing and new buildings for the districts unique
character
Remove traffic conflicts (e.g. Hwy 10 overpass to connect
north and south areas)
Provide adequate parking (e.g. parking ramp)
Utilize natural setting of the Mississippi River (e.g.
restaurant)
1970
1970
November 19, 2012 -Part I, page 22 -
1982 – Elk River Downtown Redevelopment Plan
Prepared by Zack Johnson & Associates, Inc.
The plan established a guide to evaluate physical improvements,
develop zoning policies, and establish a Capital Improvements
Program. The plan identified priority improvements and
redevelopment opportunities.
Primary objectives included:
Rehabilitate architecturally and historically significant
buildings (e.g. design standards)
Concentrate retail/office land uses south of Hwy 10
Concentrate service businesses north of Hwy 10
Concentrate high-density residential west of Lowell
Avenue
Identified priority redevelopment areas:
o Town Square (known as Jackson Square)
o King Avenue & Main Street
o Former Star News building to former Cinema
building.
1986 – Governor’s Design Team
Prepared by a team of professionals and active community
participation, an overall plan was developed for the city’s Central
Business District (CBD).
Primary objectives included:
Promote downtown as a “unique historic river town”
Link downtown to the community through open space
and a trail system
Utilize the Mississippi River with a restaurant, hotel or
community center uses
Consider a parking ramp for heavy traffic areas (e.g. King
Avenue area)
1982
1986
November 19, 2012 -Part I, page 23 -
1988 – Elk River River-walk Project
Prepared by Brauer & Associates Ltd.
The report created a river-walk design and outlined the financial
feasibility for a new building on the former Hardware store site at
the south intersection of Jackson Avenue and Main Street.
Primary objectives included:
Create more retail/service traffic via a restaurant
Generate more interest in the Mississippi River via a
boardwalk trail
Develop design standards for rehabilitation and new
construction
1994 – Mississippi River-walk Pathways Plan
Prepared by Hoisington-Koegler Group, Inc.
The planning process utilized a local committee to establish a
vision and cost estimate for developing the river-walk.
Primary objectives included:
Create an interpretive walking/biking trail along the river
that depicts the early transportation history of the region
1998 – Central Business District Action Plan
Prepared by Theresa Washburn
The plan created the foundation for developing a downtown
master plan, and completing activities through working
committees.
Primary objectives included:
Utilize the river, an arts center, pedestrian pathways and a
beautification plan
Develop design standards for signage, façade
improvements, interior improvements and new
construction.
Develop activities and events (e.g. Heritage festival,
winter festival, mural event)
Conduct a market analysis to assist business recruitment
1988
1994
November 19, 2012 -Part I, page 24 -
2002- Historic Context Study
Prepared by Landscape Research, Carole Zeillie
This study reviewed the history of select downtown
commercial properties in the context of historical, architectural
and landscape architecture features and themes.
23 properties south of 10, north of main street, east of King
Avenue, and west of Jackson were inventoried and evaluated in
these contexts. The study found that none of the properties
appear to be eligible for the National Register, although five
properties along Jackson street, recognized for their local
significance, were recommended for further study. In
particular the Kemper drugstore was recognized as locally
significant as a well conserved example of an early 1960’s
retail building.
More discussion of the Historic Context Study can be found on
page 36 of this document.
November 19, 2012 -Part I, page 25 -
Natural, Cultural and Recreational Amenities
Mississippi River
The Mississippi River through Elk River is classified by the
Minnesota State Wild & Scenic Rivers Program as a “Recreational
River”. The area is classified as a Recreational River because it
has undergone some impoundments and/or diversions in the
past and has adjacent lands which are considerably developed,
but are still capable of being managed.
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,
historical, scientific, and recreational values. The regulations also
reduce the effects of overcrowding and poorly planned
development 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.
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
by the MN Dept of Natural Resources (DNR), except with one
major island in private ownership.
Elk River
The Elk River is classified as an “Urban River” through Elk
River. The area is classified as an Urban River because it flows
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.
The Mississippi and Elk riverfronts are significant assets for the
entire community. It is an authentic amenity for the community,
and potentially the region, but it has to be connected to where
people are and easily accessible from the community as a whole.
Mississippi River
Elk River south of Dam
November 19, 2012 -Part I, page 26 -
Historic Elkhi Stadium
Most commonly referred to by locals as Handke Stadium, due to
its location next to the original Handke High School, the Elkhi
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
slough in a natural amphitheater into a playing field, the stadium
was the place for a variety of high school athletic games over the
years. During the winter, kids sledded down the hills and skated
on the village’s only ice rink.
Over the years the stadium aged and fell into disrepair. The
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,
including: a gas fireplace addition to the warming house, the
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
hockey, ice skating and other events.
Bell Tower Ice Skating
1920’s - Construction
2007
November 19, 2012 -Part I, page 27 -
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.
Over the years the City considered design enhancements to
develop the site as the central plaza with a boardwalk trail, or
“river-walk”, which would extend along the river through the
downtown area. Due to the cost of the park improvements the
project was postponed until further private investment in the
downtown area justified the large public expenditure.
In 2006, as a result of over $30-million of private investment with
the addition of The Bluffs of Elk River, Jackson Place and The
Bank of Elk River expansion, the City commenced construction
of the park improvement project. The park includes a street-level
plaza, splash fountains, a natural amphitheater and a gazebo at
the river level.
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
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
November 19, 2012 -Part I, page 28 -
Lions Park
Lions Park
November 19, 2012 -Part I, page 29 -
Market Conditions
Market research provides a context for redevelopment planning.
This research examines the type, form and quantity of new
development that could occur in downtown Elk River. The
market research helps to direct the type and scale of new
development to locations where new investment provides the
greatest positive effects.
2001 Market Analysis
In April 2001, Maxfield Research, Inc. was retained by the HRA
to conduct a comprehensive analysis of the market potential for
redevelopment for Elk River’s downtown. The research included
an analysis of the existing supply and market conditions of
housing, retail and office in the area. Growth trends and
demographic characteristics were analyzed to consider the impact
on the potential to develop various land uses in the study area.
The analysis identified 3 distinct areas in the study area based on
current land uses and physical barriers, opportunities and
challenges. The report recommendations focused on
development potential for each area and strategies to enable the
areas to compliment one another.
The three areas are:
1. Core Central Business District – south of railroad, east of King Avenue
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.
The market analysis report quantified demand for additional
housing, retail and office space in the downtown area for the
period 2000 to 2010.
Housing
For-Sale Multifamily 95-115 units
Market Rate Apartments 300-360 units
Market Rate Senior Housing 60-70 units
Office 19,000-39,000 sq. ft.
Retail*14,000 sq. ft.
* Demand through 2005
Source: Maxfield Research Inc.
Demand Summary
Downtown Elk River Redevelopment Area
2000 to 2010
Prior to use of public funds to facilitate redevelopment, it is
suggested that the market analysis be updated.
November 19, 2012 -Part I, page 30 -
In addition, the report identified sites that have the greatest
potential for redevelopment based on the positive impact it
would have on the downtown.
2007 Adjusted Market Analysis
The table below reflects the remaining balance of demand
available after reducing the initial demand by the recent
development activity that has taken place within the Study Area.
These recent developments include:
Housing:
Granite Shores for-rent multi-family 67 units
Jackson Place apartments 32 units
Office:
The Bank of Elk River expansion 20,000 sf
Retail:
The Bluffs commercial 10,000 sf
Jackson Place commercial 10,000 sf
The balance indicates remaining housing demand to 2010.
Redevelopment proposals that exceed the indicated demand
during that time shall be supported by an up to date market
analysis.
Housing
For-Sale Multifamily 48 units
Market Rate Apartments 300-328 units
Market Rate Senior Housing 60-70 units
Source: Maxfield Research Inc. & City of Elk River
Demand Summary
Downtown Elk River Redevelopment Area
2007 to 2010
November 19, 2012 -Part I, page 31 -
Transportation and Infrastructure
Railroad
The railroad has right-of-way moving approximately 77 trains per
day through the area on two sets of tracks. The line carries
passenger and freight trains.
Vehicle and pedestrian crossing concerns may be alleviated if
Railroad Drive, which runs adjacent to the railroad, is removed as
a frontage road eliminating close access to Highway 10.
U.S. Highway 10
2003-2023 Statewide Transportation Plan
No improvements are planned for Highway 10 through the
downtown area for many years, according to the Minnesota
Department of Transportation’s (MnDOT) 2003-2023 Statewide
Transportation Plan.
Interregional Corridor Management Plan
MnDOT completed several Interregional Corridor Management
Plans in 2001 and early 2002, one of which included the stretch
of Highway 10 from approximately Highway 101 to Proctor
Avenue. The results of the Plan suggested that even if a $21
million (2001 dollars) investment is spent on elevating Highway
10 through downtown, the level of service will not be improved
from an “F” rating in peak times.
If funding were to become available to MnDOT District 3, the
district in which Elk River is located, MnDOT would most likely
fund improvements to Highway 169 in Elk River as opposed to
Highway 10 since MnDOT rates Highway 169 as a “high
priority” highway, whereas Highway 10 is rated “medium
priority”.
On October 14, 2002, the Elk River City Council adopted
Resolution 02-93 “Accepting, Supporting and Adopting the TH
10 Interregional Corridor Management Plan”.
A major pivot point in the 2006 Task Force discussions involved
the Highway 10 routing through the study area. These
discussions, and the impact they had on the plan, led the City
Council to table the process until the Highway 10 plan could be
developed. Through their discussions, the Task Force developed
a number of scenarios and sketches to visually understand the
design implications Highway 10 improvements. These sketches
are included in the appendix as they are important to the history
of the planning process, and provide valuable information to the
user in understanding the changes that are coming.
Future Highway 10 Issues
In 2008, MnDOT finalized a plan for improvements to Highway
10 as it routes through the study area, submitting it to the Federal
Highway Administration for their review. This plan was prepared
through the collaborative efforts of MnDOT, Sherburne County,
the City of Elk River, and many others.
The proposed Highway 10 improvements represent a significant
change to the downtown area, and a major impetus for this
planning project. In summary, the plan shows Highway 10
evolving into a freeway through the study area. To accommodate
the necessary speeds and capacity, the main line will shift to the
north, requiring the Burlington Northern, Santa Fe rail line to
shift to the north, in the area of present day railroad drive.
Access to the study area from Highway 10 will be via
interchanges at Proctor and south of Main street, with the
November 19, 2012 -Part I, page 32 -
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.
November 19, 2012 -Part I, page 33 -
Historic Context
The study area encompasses the 432-acre core of the City of Elk
River. This core includes many of the first generation homes and
first platted neighborhoods in the City. In addition, it is the
Mississippi River and the railroad, both located in the study area,
which largely defines the historic development pattern of the
City.
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
Research.
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
inventoried properties. The Elk River historic contexts identified
in the study are:
1) Landscape Setting, 1848-1950
2) Agriculture, 1850-1950
3) Transportation, 1848-1950
4) Industry and Commerce, 1851-1950
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
in downtown Elk River and assessed their potential National
Register of Historic Places eligibility.
The study concluded that none of the 23 properties appeared to
be eligible for the National Register of Historic Places. However,
5 buildings on the west side of Jackson Ave were recommended
for further preservation study as having significance as part of
early twentieth-century downtown Elk River and retaining
varying amounts of their historic facades. These buildings are
commonly referred to as the “Brick and S. Main Blocks”.
Jackson Avenue – Brick Block “Then and Now”
November 19, 2012 -Part I, page 34 -
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.
November 19, 2012 - Part II, page 1 -
IIII.. IIlllluussttrraattiivvee MMaasstteerr PPllaann
The planning process which resulted in the Illustrative Master
Plan (Plan) consisted of the following three steps:
1) Task Force Visioning Process
2) Gathering of Public & Stakeholder Input
3) City Board and Commission Review
Task Force Visioning Process
The Task Force met over several months starting in 2006. In
2006, the planning process identified a number of variables
dependent on completion of a Highway 10 geometric plan. After
determining that these variables were too numerous and
impactful, the City Council suspended the Task Force, pending
resolution of the Highway 10 plans. This plan was completed in
November 2008, the Task Force reconvened in November, 2011.
The 2006 Task Force members had developed a Plan that was
nearing formal public comment. Upon reconvening, the 2012
task force, after spending some time identifying their goals,
agreeing on assumptions, and developing sketches of key
components of a successful downtown environment, broke into
small design charettes over several months to fine tune the Plan.
Recognizing that the triggers to major changes are not likely to
surface in the near term, the task force focused on enhancing the
quality and value of the core area, as it relates to the Elk River
community. The Task Force believes that the downtown area
serves as the community center. Visitors through and to the
downtown area develop perceptions of the Elk River community
based on these initial reactions. A vibrant, healthy downtown
area strengthens the community by extension.
The Task Force felt that strengthening the perception of the
downtown area was a priority. Introduction and expansion of
amenities, support systems, and activity are necessary to
encourage people to come downtown and businesses to locate in
the area. The Task Force understands that the history and
character of the study area, in particular the core downtown area,
is not replaceable.
The Plan is a tool for shaping development in a manner
consistent with the vision for the Study Area. The Plan uses a
variety of illustrations to depict the potential redevelopment and
revitalization of the Study Area.
The Plan is not a specific blueprint, but rather a series of
priorities, goals, tasks, and opportunities that once completed,
promote the area and the city toward sustainability. The actual
design of each site will be determined through negotiations
between the city and private parties seeking to invest in the Study
Area. The designation of existing building(s) simply sets a basis
for the initial strategy concept for a site, but should not preclude
future redevelopment.
The Plan seeks to reinforce and create a variety of connections
between the Mississippi River, which is unique to the Study Area,
and the rest of the Elk River community and region. The Plan
establishes a development framework to guide the necessary
relationships between areas of common and varied uses that are
“The Plan is not a specific blueprint, but rather a series of
priorities, goals, tasks, and opportunities that once
completed, promote the city...”
November 19, 2012 - Part II, page 2 -
important in the Study Area’s form and function. The images
incorporated within the Plan are intended to provide guidance
toward the development of formal design guidelines and small
area plans after the Plan’s adoption.
Primary Elements of the
Illustrative Master Plan
Greater Downtown Area − General
Identify opportunities to visually improve the Highway
10 corridor by adding areas of landscaping, lighting, visual
features and removing blight.
Maintain the integrity of single family neighborhoods by
encouraging opportunities for reinvestment.
Maintain historic character of the area by:
o Rehabilitation of the “Brick and South Main blocks”
o Maintain the water tower at Jackson Ave
o Designate historic single family residential areas
o Commemorative signage
o Establish design standards for new development that reflect
characteristics of the past
Establish identifiable pedestrian corridors to enhance
traffic patterns and connections throughout the Study Area:
o Main Street to Handke Stadium to Hwy 10 at Proctor
o Main Street to the mixed use area
o Jackson Avenue
Establish identifiable landscape corridors to enhance traffic
patterns and connections throughout the Study Area:
o Main Street to Handke Stadium
o Main Street/4th Street
o Jackson Avenue
Recreational Opportunities
Identify appropriate locations along the rivers for public
access.
Work with Elk River Municipal Utilities to screen or
relocate outdoor storage.
Establish a trail system throughout the study area,:
Promoting connections to the rivers, parks, and activity
venues.
Create interpretive signs to highlight historic occurrences
and view sheds
Promote people generating activities (farmers markets,
festivals, concerts, sidewalk sales) to expand and enhance
citizen activity in the Study Area:
Core Downtown
Establish the Mississippi River as the significant
recreational amenity by creating a variety of public access
opportunities, physical connections and activities within the
Study Area.
Establish specialized commercial land uses in the core
downtown (e.g. hotel, restaurant, banquet facility).
Protect the large scale massing of buildings in the core
downtown that establish the character of the core area
Use structured parking in the core downtown to provide
parking necessary to support diversity of uses in the downtown
area.
November 19, 2012 - Part II, page 3 -
North of Highway 10
Reconfigure roadway patterns through the Study area to
respect the Highway 10 future plan.
Concentrate employment generating land uses (e.g.
office/medical) north of Highway 10 to bring daytime users
that support the core downtown commercial.
Concentrate mixed uses in taller buildings at the
intersection of Main Street and 4th Street to maximize views
of the Mississippi River.
Manage storm water drainage through a greenway
concept that connects Lion’s Park to maximize views of the
Mississippi River.
Establish higher density residential around Lion’s Park to
increase its value and desirability.
.
November 19, 2012 - Part II, page 4 -
November 19, 2012 - Part II, page 5 -
Public Participation Process
Upon completion of defining the goals, policies and strategies
and the creation of the Master Plan concepts for the area, the
Task Force opened the plan for public inspection at two open
houses. One held on September 13th was lightly attended. A
second open house on October 22nd was more heavily attended,
with approximately 30-40 people reviewing the plan and talking
to staff and Task Force members. The purpose of the
community open houses was to receive community feedback
regarding the planning process and subsequent master plan
concepts. This was also an opportunity to educate the public on
the changes expected as part of MnDOT’s improvements, and
our reaction to those changes and gain public understanding for
the plan.
A public comment period was opened on September 4, 2012 and
formally closed on October 22, 2012. Notices for a September
open house were posted on the city website, chamber newsletter,
and Star News. Notices for an October open house were mailed
to each property owner in the study area, in addition to the
sources above. During that 6 week period, the Planning
Commission, Park Commission, Heritage Preservation
Commission, Housing and Redevelopment Authority, Economic
Development Authority and City Council all received the plan.
All written comments received during the month were reviewed
by the task force at their meeting on October 22, 2012. These
written comments are included in the appendix.
No significant redevelopment plan can be universally agreed to
by all parties, but this plan does represent the consensus of those
participating in the process based on the information known at
the time.
In general, the comments heard and reviewed by the Task Force
were separated into three themes. Some comments directed a
change to the plan. These include suggestions to expand the
downtown area to facilitate more opportunities for
redevelopment, remove references to forming a Historic
Preservation residential district, and add or remove trails
throughout the plan, and complete a historic context study north
of Highway 10.
Other comments were characterized by the Task Force as general
beliefs; these comments voiced a concern over the viability of
businesses in the area, the impact Highway 10 changes will have
on them, and concern over the use of eminent domain.
These comments were helpful in reaffirming the purpose behind
the plan. Task Force did not make changes to the plan, but
reiterated to the commenter the purpose behind the plan, and
how the city intends to address these changes. Additionally, the
Task Force received comments from property owners who would
be impacted by the plan, but these impacts were not shown. It
was recognized that as the plans become more and more detailed,
impacts will be better understood. In the meantime, the user of
the plan should be cognizant of these impacts as they develop
over time.
Lastly, the Task force reviewed comments from property owners
who voiced skepticism that the changes to Highway 10 would
ever materialize, and that the plan is premature. Further,
commenters expect changes to the Highway 10 plan, which will
impact the Task Forces’ Mississippi Connections framework. No
plan is final; it is common, even expected, that as more
information is known, modifications to a plan are necessary. This
plan represents a solution to the impacts anticipated today. The
Task Force suggested that a review of the plan occur in 10 years
to see how new information might improve the plan.
November 19, 2012 - Part II, page 6 -
GGooaallss
Redevelopment Framework Goals
The following Goals are supported by various Policies and
Specific Area Strategies within this Plan that will assist in
implementing the long term vision for the Study Area:
1. Establish the core downtown area as an identifiable asset
to current and future residents.
2. Create opportunities to identify the Study Area both as a
gateway to the community and as a place of historical
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.
8. Maintain Highway 10 access and visibility to the core
downtown area and create enhanced primary traffic
corridors through the Study Area to strengthen its
connection to the community.
9. Introduce new land uses for the area north of Highway
10 that complement the core downtown area.
10. Maximize long term public investments within the Study
Area by encouraging a significant amount of private
investment in a way that benefits the community as a
whole.
11. Monitor the health of the multi-family inventory to
ensure its sustainability.
November 19, 2012 - Part II, page 7 -
PPoolliicciieess
The Task Force developed the following Policies to be used as a
framework for the long term Plan and Specific Area Strategies:
1. Through the Task Force Mission Statement, it has been
determined that the Study Area needs to be redefined and
that substantial redevelopment efforts will most likely
occur in the future as a response to the market. In order
to respond to these changes, a comprehensive
redevelopment framework is necessary to guide both
private and public investment/reinvestment efforts to
ensure that the goals of the community are met in the
short and long term.
2. The Mississippi and Elk Rivers define downtown’s
uniqueness and history; these should be emphasized both
as a recreational amenity and as an asset enhancement for
redevelopment opportunities.
3. Explore opportunities for public access improvements
and activity generation at the Mississippi River, Elk River,
Handke Stadium, Lion’s Park and River’s Edge
Commons Park in order to achieve a sense of place and
connection to the community.
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.
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
those residential and commercial buildings.
6. North of Highway 10 should not be an extension of the
core downtown. The land uses on the north side should:
a. Not be in competition with the core downtown
b. Compliment the core downtown in terms of
design, transportation, pedestrian movement and
market opportunities, and
c. Include employment centers to bring daytime
users and jobs (e.g. office/medical) to support the
retail in the core downtown.
d. Include opportunities for draws; activity centers,
plazas, etcetera that add visibility and identity to
the area.
7. Responding to redevelopment opportunities are critical to
the area. Recognizing that redevelopment is more costly
and riskier than greenfield development, market triggered
redevelopment should be encouraged and assisted.
November 19, 2012 - Part II, page 8 -
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.
November 19, 2012 - Part II, page 9 -
SSppeecciiffiicc AArreeaa SSttrraatteeggiieess
Recreational
Opportunities
Objective Statement
The unique recreational amenities
located within the Study Area are
the Mississippi River, the Elk River,
historic Handke Stadium, Lions
Park and Rivers Edge Commons Park.
One of the key findings of the community’s 2011 branding
process was the recognition that Elk River residents are physically
active, and the area park amenities are known region wide. This
recognition helps form the development of the community’s
Powered by Nature brand. The effective preservation and
expansion of these recreational features will do more to establish
the study area as the hub of the city than any development
project devoted to commercial or residential uses of comparable
expense.
The Plan emphasizes the need to connect these amenities to
provide the public a variety of venues to connect and experience
the area’s historic, cultural and natural environment. Initially,
these connections will be found via the established routes, it is
envisioned that as properties develop or redevelop, connections
along the amenity will be added.
Elk River near the Dam Elk River Meets Mississippi
Lions Park Rivers Edge Commons Park
Handke Stadium
November 19, 2012 - Part II, page 10 -
Strategies
1. Identify specific locations along the Mississippi River and
Elk River, including the islands for certain types of public
access opportunities (e.g. fishing, canoeing, boating,
birding, etc.). Incorporate a variety of public access
opportunities with improvements that allow the public to
interact with and experience the rivers.
2. Work with Elk Rivers Municipal Utility Commission to
relocate outdoor storage located along the Elk River.
3. Secure property immediately adjacent to the Mississippi
River as a public access recreation and connection
opportunity.
4. Establish an integrated trail system throughout the core
downtown area, promoting connections to Babcock Park,
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.
5. Create interpretive signs to highlight historic occurrences
and experiences along the trail system and throughout the
Study Area.
6. Identify key parcels for archeological digs in partnership
with landowners (e.g. mill site).
Fishing
Historical Signage
November 19, 2012 - Part II, page 11 -
7. Actively promote the linkage between Lion’s Park and the
Mississippi River through a greenway concept as
illustrated in the Plan. Explore opportunities to provide
safe, attractive pedestrian crossings of the railroad tracks
and highway to connect the areas.
8. Promote a wide variety of people-generating activities
(e.g. farmers market, concerts, street dances, sidewalk
sales, etc.) in addition to the currently scheduled River’s
Edge Commons Park activities.
9. Explore acquisition or use of Bailey point and Houlton
Farm property as a way to expand the trail in the short
term, and long term options to create a nature park that
may include educational and interpretive amenities along
the Mississippi and Elk Rivers.
10. Review and consider potential impacts of DNR Wild &
Scenic River Standards on riverfront development in
order to protect the integrity of the bluff.
11. Partner with the community’s “Elk River Area Arts
Alliance” to explore a permanent arts center to be located
within the Study Area.
12. Develop a long term capital improvements program that
will guide public investment to complete the Plan’s
recreational components.
People-Generating Activities
November 19, 2012 - Part II, page 12 -
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
an area that has shifted to office and service uses with the
majority of retail moving to the Highway 169 corridor. Activities
include specialized commercial/ service, and increased
recreational opportunities. Additional residential units are
necessary to support these businesses, especially when traffic
patterns further evolve away from direct access.
For the downtown to succeed, Downtown needs to become
more of a destination now, so that when access is vastly different,
the businesses have already built up customer base.
Desired redevelopment should not only reflect the Plan elements,
but be sensitive to the area’s unique historic context, the
pedestrian view sheds and public access opportunities to the
Mississippi River.
Core Downtown
Residential, Office and Service
Granite Shores Project
November 19, 2012 - Part II, page 13 -
Strategies
1. Expand the Core area to the north side of Highway 10.
This will add additional properties for the expansion of
the downtown marketplace, allowing for a greater
complement of activities, uses, and businesses.
2. Develop and implement a way finding signage plan, as an
added connection between the core downtown area and
other neighborhoods in the study area. Transition
existing regulatory and informative signage to the theme
established by the signage plan.
3. 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”
4. As suggested by the 2002 Historic Context study,
determine the financial feasibility of preserving the “Brick
and South Main blocks” as both historical and
economically viable assets. Efforts to achieve this result
should include a structural survey to determine
rehabilitation feasibility, agreement on façade restoration
design and exploring options to ensure participation by all
affected property owners.
5. Encourage maintenance and upkeep of the “Brick and
South Main Blocks” through incentive programs for
commercial building code, fire and façade restoration and
rehabilitation. Explore incentive programs available
through state and local resources (e.g. historic tax credits,
EDA loan program, etc.) and communicate information
to property owners.
6. Develop design standards that embody the spirit and
intent of the long range vision. Designs should reflect
historical elements of the existing downtown structures
maximize visual participation to the river, encourage
proper mass, scale, and materials that balance new
development with rehabilitated and preserved properties.
Downtown Character Through Design Details
7. Develop land use regulations that supports development
of high density specialized commercial land uses and high
density residential at all price points, provide appropriate
density rights and/or other incentives to make projects
financially viable.
November 19, 2012 - Part II, page 14 -
8. Promote the Core Downtown’s unique identity as
“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
area. Direct a portion of City marketing funds to assist in
the recruitment of highly desirable businesses (i.e. hotel,
fine dining, banquet/conference facility) to this area.
9. 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.
10. Review and establish parking code requirements in the
downtown area, to allow for a mix of private and public
parking areas, recognizing that an excessive surplus of
parking is detrimental to the downtown character and its
pedestrian friendly design.
11. Require a traffic and parking demand study for every
major new project to determine if infrastructure
improvements are needed and parking can be
accommodated.
12. 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.
Embellishments
ISD 728 Facility
November 19, 2012 - Part II, page 15 -
13. Explore mechanisms to continue to communicate the
redevelopment/expansion successes created by Granite
Shores, Jackson Place, The Bank of Elk River and River’s
Edge Commons Park and the reinvestment they
represent.
14. Capitalize an HRA Redevelopment Fund annually and
develop criteria for the selective acquisition of key
redevelopment parcels.
15. Identify current property owners’ interest in
redevelopment efforts and assist them by working with
the development community to achieve shared objectives.
16. Establish a special taxing mechanism to capitalize an
improvement, maintenance, and incentive fund to
support the downtown businesses and the infrastructure
that supports them.
17. Consider a tax increment finance district(s), as
appropriate, as a way to leverage private investment. The
City will actively seek additional public and private
funding sources to secure redevelopment objectives in the
area.
18. The Historic Preservation Commission should explore a
historic context study for the blocks on the north side of
Highway 10, south of 4th street, west of Gates.
November 19, 2012 - Part II, page 16 -
Highway 10 Corridor
Objective Statement
Highway 10 is a central transportation corridor through the City
and also serves as the gateway to the core downtown area.
Currently, a wide array of highway commercial land uses aligns
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.
November 19, 2012 - Part II, page 17 -
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.
5. Work with property owners to rehabilitate obsolete
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.
Main Street and Highway 10
November 19, 2012 - Part II, page 18 -
North of Highway 10
– Jackson Ave and 4th Street Corridors
Objective Statement
While historically identified as part of “downtown”, the area
north of Highway 10 has evolved over the years into different
land uses (e.g. industrial and highway commercial) that no longer
represent a traditional downtown market.
The Plan recognizes the opportunity to create an improved
physical connection between the north and south areas of
Highway 10, realignment of existing internal roadways, and
introduces the concept of employment generators that bring
daytime users with a wide range of salaries, and a significant
residential component to this area that will complement and
support the core downtown.
The Plan emphasizes transforming Jackson Avenue, and possibly
Main Street, as a parkway that will serve as the central corridors
and entrances to the core downtown’s commercial, cultural and
recreational amenities and the rest of the community.
The Plan describes the area as “mixed use”. The goal with this
designation is to identify the need for additional housing and
employment options in an urban environment. Development and
redevelopment of the area should emphasize a high level of
design. Where possible, development should capitalize on area
assets, including the Mississippi River, Lions Park, Highway 10
visibility and Highway 169 proximity. Downtown draws
requiring large land area could be introduced to the area. Taller
buildings with ground level plazas or gathering spaces are
encouraged.
Jackson & 4th Street Improved Connections
November 19, 2012 - Part II, page 19 -
Strategies
1. In order to create Jackson Avenue and 4th Street as
primary corridors, as described in the Plan, an overall
feasibility study should be completed in order to
implement the following action steps:
a. Secure additional right-of-way (100 feet
minimum) for Jackson Avenue to create an area
sufficient for parking, trees, sidewalks/trails,
lighting, and a center landscaped median.
b. Secure additional right-of-way for Jackson
Avenue and 4th Street intersection and
realignment modifications and improvements.
c. Vacate Railroad Drive between Main Street and
Jackson Avenue to facilitate a safer travel corridor
via 4th Street.
d. Identify necessary road and infrastructure
improvements.
e. Incorporate roadway improvements into the
City’s Capital Improvements Program and
Transportation Plan.
Jackson & 4th Street realignment
November 19, 2012 - Part II, page 20 -
2. Identify parcels that can be assembled in order to create a
significantly sized area for redevelopment as indicated on
the Plan. Seek to acquire these parcels when they become
available to facilitate redevelopment efforts.
3. Create an identifiable landscape corridor along Main
Street/4th Street to enhance traffic patterns and
connection to Highway 169.
4. Maintain the existing Jackson Avenue & 4th Street water
tower as both a historical structure and as an identifiable
asset and landmark for future redevelopment efforts.
5. Encourage, through design and zoning standards, multi-
story office buildings for the Main Street and 4th Street
area that can maximize the view sheds to the Mississippi
River.
6. Review and modify existing land use regulations to
prevent incompatible land use changes that may
negatively impact the redevelopment potential of the area,
including restrictions on single-family home conversions
to businesses.
7. Modify land use regulations to support the development
of employment generators such as medical facilities,
office, and institutional uses along west Jackson Avenue
and 4th Street/Main Street to further the overall objectives
of the Plan.
Critical Land Mark
Railroad Drive Looking West
November 19, 2012 - Part II, page 21 -
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
existing high density housing inventory.
9. Incorporate medium density urban style town homes
along west Jackson Avenue to better define the Jackson
Avenue parkway.
10. Initiate discussions with Sherburne County regarding the
future, long term use of their highway administration
building.
11. Promote opportunities to develop green ways and storm
water retention areas both as an amenity and to treat
storm water within and through the area.
12. Capitalize annually an HRA Redevelopment Fund to
finance acquisition or control of key blighted properties
that have negative impacts on the redevelopment
potential and/or prevents the implementation of the
Plan’s key objectives.
County Building
High Density Housing
November 19, 2012 - Part II, page 22 -
Residential Neighborhoods
Objective Statement
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
the success of the Plan and the collective Elk River Community.
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.
November 19, 2012 - Part II, page 23 -
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.
November 19, 2012 - Part II, page 24 -
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.
Single Family Neighborhood
November 19, 2012 - Part II, page 25 -
Multi-Family Strategies
1. Carefully analyze any development proposals that restrict
either income or rent to ensure that the existing Study
Area maintains a variety of housing options.
2. Ensure that all properties participate in crime-free and
safety initiatives administered by the City.
3. Establish educational opportunities to encourage code
compliance and improvements by property owners.
4. Develop a rental housing monitoring system that will
serve as the basis for future program development.
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.
Multi-Family Housing - Proctor Avenue
Multi-Family Housing – School Street
November 19, 2012 - Part II, page 26 -
PPrrooccttoorr aanndd QQuuiinnnn AAvveennuueess
Objective Statement
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
with Highway 10 via an overpass. This overpass will extend to
the north, over the railroad tracks. This long elevated road will
create a unique opportunity for the property in the area, altering
visibility and access.
Due to the area’s proximity to the train tracks and Highway 10
traffic, the Plan suggests business park uses and employment
centers.
Future Redevelopment Opportunities – Proctor & Highway 10
November 19, 2012 - Part II, page 27 -
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.
Adjacent Land Uses
November 19, 2012 - Part III, page 1 -
IIIIII.. IImmpplleemmeennttaattiioonn PPrriioorriittiieess
Implementation
The Mississippi Connections Redevelopment Framework Plan is
intended as a framework for the evolution of the area as
transportation, market, and use pattern shifts shape the area. The
goal with this plan is to recognize these changes and guide them
and the resulting development and redevelopment toward a
preconceived vision.
It is recognized that the Mississippi Connections Redevelopment
Framework Plan will not be implemented in its entirety
immediately but will evolve over the next 20 years. Thus, the
Plan should be viewed as a sound, yet flexible sequence of orderly
developments within the Study Area to achieve the vision.
Establishing priorities to create the environment that encourages
private reinvestment helps guide the City’s decision-making
process and allocation of time and resources.
The sizes and shapes of the facilities illustrated are not meant as
hard and fast rules. They are intended to be suggestions and
points of discussion as to the intensity and options for
development. Each structure must be an individual statement of
architecture, yet fit into the general character of the study area.
Implementation Policies
Redevelopment is an ever-changing process and activity may
occur outside the identified Priority Project strategies, therefore
the City, property owners, and stakeholders should consider the
following policies as a framework for decision-making and
strategy as the City evaluates potential redevelopment projects
and determines where to direct resources. These policies should
serve as the basis for development of a work plan for the
Housing & Redevelopment Authority.
The availability of external resources (i.e. grants) and/or
market conditions may create redevelopment opportunities
outside of established short-term priorities. These
opportunities may be pursued even if they are not part of
the short-term priority list.
The City and the Housing & Redevelopment Authority
should examine the creation of a permanent redevelopment
funding source(s) that will complement the resources
traditionally available through tax increment financing and
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.
November 19, 2012 - Part III, page 2 -
Priority Projects
The following strategies are a reflection of the Task Force’s
consensus priorities.
Short Term (0 – 2 Years)
After City approval on final design, secure an agreement with
MnDOT regarding potential funding sources.
Identify current property owners’ and businesses’ interest in
redevelopment efforts both north and south of Highway 10.
Identify and promote housing rehabilitation financing programs
that are provided by other entities and applicable to the study area.
Work with Municipal Utilities to relocate outdoor storage located
along the Elk River and secure property to create a public access
opportunity.
Amend the City’s Comprehensive Plan and Zoning ordinances to
match the Illustrative Land Use Plan.
Implement a Downtown District signage plan., including parking
and directional signage
Establish historical point of view context signage.
Review and as necessary update strategies identified within the
2007 Downtown Parking Study.
Work with State Historic Preservation Office to determine
structural and financial feasibility to preserve the “Brick and S.
Main Blocks” and if applicable for the blocks north of Highway 10.
Conduct a survey of residential properties to identify and establish
a historic residential neighborhood district.
Create concept drawings for an integrated trail system and work
with affected landowners an implementation strategy.
Develop and promote a wide variety of people-generating activities
in addition to current scheduled activities in River’s Edge
Commons Park.
Identify key parcels for archeological digs along the riverfront in
partnership with landowners.
Develop design standards that embody the spirit and intent of the
long range plan for new construction in the core downtown area.
Communicate with School District on long term plans for their
office building.
Direct a portion of City marketing funds to assist in the
recruitment of highly desirable businesses to the core downtown
(e.g. hotel, fine dining, banquet facility).
Create through the HRA a redevelopment policy regarding
capitalizing a redevelopment fund and parameters for purchasing
parcels.
Establish educational opportunities to encourage code compliance
and improvements by property owners within the entire study area.
Establish educational opportunities to encourage code compliance
and improvements by property owners within the entire study area.
Identify a partner housing organization to fund and support a
selective housing removal and rebuilding program.
Analyze the need for a single family and duplex rental units
licensing program.
November 19, 2012 - Part III, page 3 -
Establish neighborhood groups to assist in promoting coordinated
housing improvements throughout the area.
Conduct historic context study for blocks north of 10
Mid Term (3 – 5 Years)
Create interpretive signs highlighting historic occurrences along the
Mississippi River trail after trail is installed.
Partner with Elk River Area Arts Alliance to explore funding
concepts for an arts center within the study area.
Establish a façade restoration financing program for maintenance
and upkeep of the “Brick and S. Main Blocks”.
Finalize roadway design for north Highway 10 and related
intersection improvements. Start the implementation process to
create new roadway improvements north of Highway 10.
Develop a rental housing inventory and monitoring system that will
serve as the basis for future program development.
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.
City partnering with property owners and the development
community to implement redevelopment projects that meet the
community vision.
Expanded parks programming aimed at attracting residents to the
area.
Promote programs that encourage single family residential
rehabilitation.
Continue to assist in the recruitment of highly desirable businesses
to the core downtown (e.g. hotel, fine dining, banquet facility).
Continuously seek and secure opportunities to expand funding
sources.
Work toward full participation and renovation of the “Brick and S.
Main Blocks”.
Work with the City Council and City Boards and Commissions on
continuous review and modifications to the Plan, as needed.
November 19, 2012 - Part IV, page 1 -
IIVV.. AAppppeennddiicceess
Strengths/Weakness/Opportunities/Threats Analysis
2006 Planning Process
Public Comments
Task Force Resolution
November 19, 2012 - Part IV, page 2 -
- Purposely left blank -
November 19, 2012 - Part IV, page 3 -
Task Force Strengths, Weaknesses, Opportunities, and Threats (SWOT) Analysis
STRENGTHS WEAKNESSES OPPORTUNITIES THREATS
Neighborhood Schools
River
Businesses that are easily accessible
Nice homes
Churches
Authentic small town character
(buildings)
Opportunity for individually
owned businesses (affordable and
non national chain)
Personal Touch – Everyone knows
your name
Nostalgia/sentiment
Identifiable location
Variety of services
Charm/Character (lights,
streets, etc.)
Local financial institutions
(anchors)
Safe environment
Public gathering places (new
park)
Proximity to Otsego retail
Heritage/history
Connectivity (Highway 10, rail
road and transportation)
Public facilities in close proximity
(City Hall, Library, future YMCA)
Small and limited geographic area
Small critical mass
Limited interest in going
Downtown by people
Everyone knows your name
Age of existing real estate
Lack of reinvestment
Highway 10 and railroad divides
area and people don’t want to cross
Limited access to River
Parking
No grocery store
Lack of variety in businesses
Not pedestrian friendly (snow
issues, biking, etc)
Traffic congestion
Delivery trucks
Lack of fine dining
Lack of benches or places to sit outside
New residents have an unfamiliarity
with Downtown
Limited connectivity of north and
south areas
Market saturation
New retail and business uses
New customer base
Rehabilitation of existing buildings
More public gathering spaces for social
activities
Outdoor dining
Blank slate north of railroad tracks
More riverfront development
More access to River
Tie north and south areas together
More residential development
Moving west of Downtown to develop
Enhance Handke Center
Current redevelopment efforts lend
credibility
to outside investors
North Star Rail and depot location
Screen railroad tracks and create buffers
Put in trail system along the River
Promote an authentic Downtown
Incubator businesses
Corridor to cross Highway 10 and railroad
tracks
Attract more residents to live Downtown
Competing retail both locally (internal) and from
surrounding communities (external)
Lack of commuter rail stop in Downtown
Possible bypass of Highway 10
Continued expansion of Otsego/Highway 101
area
Traffic issues (congestion, increased traffic,
crossing Highway 10, etc)
Value of housing stock going down
Land speculators (buying homes and renting them
until they can put together large enough parcel to
develop on)
Economic fluctuations in general
Noise (Highway 10 and railroad)
Not leasing out existing retail in new redevelopment
projects
Land locked for River access/trail
Market saturation
Raising rents for existing businesses
Through traffic
Increasing land acquisition costs
Changes in eminent domain laws
Fear of change
Lifestyle to support Downtown (convenience, price
vs. nostalgia, lack of interest and lack of
wanted/needed services)
Cost to upkeep aging real estate
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)
November 19, 2012 - Part IV, page 4 -
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
and south sides of Highway 10 through prominent
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
Task Force Design Charette Sketches
November 19, 2012 - Part IV, page 5 -
Task Force Design Charette Sketches
November 19, 2012 - Part IV, page 6 -
Group #2 Concept
Use Jackson Ave as a tree-lined “feeder” to core
downtown
Focus early redevelopment efforts north of Highway 10
Provide river connections
Consider options for intersections on Hwy 10, including
leaving them “as is”
Provide employment opportunities north of Hwy 10
Provide transitions in land use that protect remaining
single-family neighborhoods north of Hwy 10; protect
existing single-family homes south of Hwy 10
Use Babcock’s Point
Task Force Design Charette Sketches
November 19, 2012 - Part IV, page 7 -
Refined Large Group Concept – June 4, 2007 meeting
Core Downtown
o Maintain the “Brick Block” through rehabilitation
o Allow for redevelopment of area between The Bluffs &
First National/Dare’s
o Proper scale, e.g. row homes, to buffer single-family
homes and new developments
o Main Street between Morton & Lowell should be
considered a good transition area between new
developments & single-family homes
o First floor commercial to be based on market demand
o Discourage “leapfrog” redevelopment
o Utilize design standards to promote historic “look” for
new buildings
o Conduct traffic studies on a project-by-project basis to
determine roadway improvements for certain land uses
o Remove outside storage to incorporate a public access to
Mississippi River (at Municipal Utilities building)
East Jackson Avenue Corridor
o Jackson becomes a tree-lined parkway design as primary
corridor
o Single family homes fronting east Jackson may be removed
to accommodate live/work structures
o Alley to serve as main access to buildings along
Jackson/minimal setbacks along Jackson to obtain “urban
feel”
West Jackson Avenue Corridor Including the Current Industrial
Area
o High density residential abutting Lion’s Park
o “Anchor” commercial/institutional land use needed on
southwest corner of Jackson & School Street
o Create roadway connection between Jackson & Lion’s
Park Drive
Highway 10 Frontage from Jackson Avenue to Gates
o High scale commercial/office building at intersection of
Main Street & Railroad Drive to maximize view of river
East Main Street Connecting to Highway 169
o Redevelop as commercial (office/service) rather than
single-family residential
o Alley to serve as main access to buildings along
Main/minimal setbacks along Main to obtain “urban feel”
o Continue tree-lined parkway along Main Street to Hwy 169
Quinn Avenue Area
o A separate redevelopment study of this area should be
completed
Figure A – Overall Land Use Concept
November 19, 2012 - Part IV, page 8 -
Figure B - Main Street View Sheds to Mississippi River
Figure D – S. Hwy 10 Looking North to Jackson Ave Parkway
Figure C - Trail Loop and Pedestrian Connections
Figure E - Main Street Detail Looking Southeast
November 19, 2012 - Part IV, page 9 -
Refined Large Group Concepts – June 4, 2007 meeting
Figure F
North Hwy 10 – Jackson Ave & 4th Street Corridor Refined
Figure G
North Hwy 10 Looking South Along Jackson Ave Parkway
Figure H North Hwy 10 Looking North Along Jackson Ave Parkway
November 19, 2012 - Part IV, page 10 -
Public Comments
The following were the written comments received during the
public comment period ending October 22nd.
What is the best aspect of this plan?
Great for moving traffic through town; terrible for the downtown
businesses – have you no concern for them? Business owner
Nothing on our behalf. Resident
Turning Bailey Point into a nature park. Resident
Turning the Babcock’s “Bailey Point” property to a nature park.
Resident
Redevelopment of obsolete buildings. Business operator
What should the Task Force reconsider?
Downtown access, very limited, inhibiting growth. Retailers need
visibility and immediate access, this plan eliminates immediate access.
Business owner
I strongly urge the Task Force to explain their vision of “historic
downtown” to include the 100+ year old buildings in the “mixed use”
area north of Highway 10 between Jackson and Main Street. This area
should be part of the “core” area. Business owner
Value of all property near road expansion/ramps. Great walls
surround my property; wow – great! Resident
Making our neighborhood a “historic neighborhood.” Resident
Making our neighborhood into a “historic” neighborhood. I own my
home and property and would refuse to request permission from a
committee to change my own home. I purposefully do not live in an
“association”. Resident
Mixed use areas – be careful of not too much residential because still
close to tracks – doesn’t attract upper end residential. Business operator
Bike trail from downtown to the train station. We have a unique
opportunity to have a 3 – 4 mile loop heading north from the station
and looping back to the downtown. With parking an issue and more
people living downtown, this also encourages pedal power to reduce
traffic. Planning Commissioner
General Comments –
With reduction of immediate access, traffic decreases, giving reduction
of retail value in terms of sales and rents available to owners thereby
reducing value of area. Business owner
This destroys property value – corner home with wall surround. Truly
upset – by out some homes. Resident
Thanks for emailing postcards to keep people informed. On page 10,
#2, Mississippi River should say Elk River. Resident
We will never go along with this plan and will paint our house with a
bright polka dot design if necessary. Resident
I will never go along with this nor pay any fines. I will do everything
in my power to speak against this and act against this in any and every
avenue! Also, most homes in the neighborhood are not very historic to
begin with. Resident
Git ‘er done – it would invigorate all of Elk River! Business operator
November 19, 2012 - Part IV, page 11 -
1. I fully believe in the historical FEEL of the downtown area. That
is more the result of the looks of the buildings (mostly brick) (design
standards) and the close proximity than the actual structures
themselves.
2. While the core downtown has a historical FEEL, I believe there is
very little historical significance to the downtown itself. Yes, for some
residents and former residents, it brings back memories (nostalgia), the
future of the City is not in looking backward, it is in looking forward.
Keep in mind the 1980 population was less than 7,000, in 1990 it was
less than 12,000 and in 2000 it was less than 17,000. It is now about
23,000. Of the 7,000 who were here in 1980, I would guess less than
half remain whether due to moving or death. So we're preserving
"nostalgia" of the past for maybe 15% of our current population - a
number that is ever decreasing. The Plan talks about "creating a new
history." That won't occur holding onto someone else's past.
3. The Core Downtown Statement says to rehabilitate and redevelop
- but it also discusses the Brick and S. Main Blocks as needing
"historical rehabilitation". If those blocks are "off the table", that
pretty much eliminates much of the potential redevelopment. When
the Metro Plains developments were being considered, it was discussed
that a Phase 2, encompassing the area from Granite Shores to the
Cinema Building could be possible. Again, with proper design
standards, I still see that as a viable redevelopment project.
4. The Plan doesn't really seem to discuss the viability of the
businesses in the area. Having a mere "location" doesn't make the area
"destination." How will the realignment of Jackson Street / King
Street affect the Jackson Street buildings? What is the "hook" to get
people to want to come to the downtown area - especially the core
downtown? Maybe entertainment??
5. I believe the core downtown area is too small of a commercial
area. I think it should be expanded (but not extremely) but with good
"historical feeling" design standards. I don't believe the current size
really makes the area viable as a destination because the businesses
don't complement each other well. Expanding the area will allow
development of a new area the purpose of which could be better
defined.
6. I'm not in favor or requiring the rehabilitation of homes that have
exceeded their life expectancies. Times have changed. Energy
efficiencies have improved greatly. Building materials and codes have
changed. Styles have changed. Desired amenities have changed. To
require someone to keep a style house favorable in the 1920s (or
whatever period) is inefficient and will eventually cause blight. Yes,
incentives might be possible now, but eventually, structures degrade to
the point of being very cost inefficient and/or unsafe.
7. I do not favor retaining the Water Tower and will oppose the use
of ANY city money to preserve it. I truly believe the effort to preserve
it to this date was the result of the actions of a select few. In 2002,
costs to repaint the tower were stated to be from $50,000 to $100,000.
The cost to remove the tower would be less. Ownership was stated to
be in ERMU and nearly all discussion went via ERMU and the HPC.
Even ERMU voted to tear it down in 2002. Updates were not
provided to the Council and no approval for the application for the
National Register was requested of the Council. Then, just last month,
it was disclosed during a budget session that it looks like the City is the
actual owner and the cost to repaint would be close to $400,000.
Apparently, staff new this in December or before; however, it was
never mentioned to the Council. It has been stated the painting will
occur only if grants are received to pay for all of it. I have no objection
to that, but I will not vote to approve the use of City funds. I am also
hearing (but not from information provided to the Council),
apparently, there may be concerns about the structural integrity of the
water tower ... the cement at its base may be degrading.
8. The section "Previous Relevant Studies" should include a full
discussion about the Historical Context Study. While the Context
Study is discussed a bit several sections later, it provided an actual
professionally prepared and researched account of why the area is really
November 19, 2012 - Part IV, page 12 -
NOT historically significant. Each building was individually
researched. The Context Study was very critical of historical
preservation in the core downtown. As included in the Downtown
Task Force report, the entire context study is pretty much relegated to a
statement that "The study concluded that none of the 23 properties
appeared to be eligible for the National Register of Historic Places.
However, 5 buildings on the west side of Jackson Ave were
recommended for further preservation study..." No further study has
ever occurred. Basically, the Task Force, because of it's bent on
preserving the old, decided to pretty much ignore the Context Study.
Council Member
November 19, 2012 - Part IV, page 13 -