HomeMy WebLinkAbout4. Facade Improvement Loan Program and First Avenue Guidelines CITY OF SHAKOPEE
Memorandum
TO: Shakopee Economic Development Authority
Mark McNeill, Executive Director
FROM: R. Michael Leek, Community Development Director
SUBJECT: Facade Improvement Loan Program and First Avenue Guidelines
MEETING DATE: December 18, 2007
REVIEW PERIOD: NA
INTRODUCTION:
The EDA is asked to provide staff with direction regarding the following two issues:
1. Whether to allocate funds for 2008 for the Facade Improvement Loan Program (FILP)from
the City's EDA fund balance;
2. If funds are allocated for the FILP, whether the attached design guidelines should be adopted
for applications for loans in the First Avenue Corridor.
DISCUSSION:
In 2006 approximately $13,000 of an initial $50,000 remained in the FILP. Since those funds were
not used in 2006, staff's understanding is that it rolled back into the City's EDA fund balance. New
funds for the FILP were not identified for either the 2007 or 2008 EDA budgets. The EDA is asked
to provide direction as to whether to allocate funds (perhaps $50,000 as in the original program) to
the FILP for 2008.
EDA did direct staff to expand the program by developing design guidelines that would apply to
buildings in the First Avenue corridor. Staff did develop a draft based on the Downtown Design
Guidelines and shared it with both the Economic Development Advisory Committee (EDAC) and
the Historic Preservation Advisory Commission (HPAC). (See copy of initial draft attached)
The EDAC recommended that the FILP be used to provide funding for projects that restore the
historic character of a building or, for more modern buildings, give buildings a more historic
appearance. By contrast, the HPAC seems to suggest guidelines which provide more flexibility for
buildings in the corridor that are examples of architecture that was characteristic of the decade in
which they were constructed (see attached memo from Mark Noble dated December 18, 2007).
Because of the difference in these recommendations, the EDA is asked to discuss the two
approaches, and (if it chooses to provide funding for the FILP) provide guidance as to which
approach to take in finalizing the First Avenue Corridor design guidelines.
The EDA is asked to provide direction regarding whether to fund the program for 2008 and whether
it wishes to adopt the First Avenue Design Guidelines.
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ALTERNATIVES:
1. Offer and approve a motion directing staff to amend the City's budget by allocating a $50,000
from the EDA fund balance (currently about $295,000) for the FILP; and
2. Provide staff with direction as to what approach (EDAC or HPAC) approach to use in finalizing
the First Avenue Corridor design guidelines.
Or
3. Do not approve a budget amendment allocating funds from the EDA fund balance to the FILP
for 2008; and
4. Take no action on the First Avenue design guidelines as presented.
Or
5. Table the matter for additional information.
ACTION REQUESTED:
Offer and approve a motion consistent with the EDA's wishes relative to the Facade Improvement
Loan Program, either 1 and 2, 3 and 4, or 5 (table).
U
R. Michael Leek
Community Development Director
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CITY OF SHAKOPEE
Memorandum
TO: R. Michael Leek, Community Development Director
FROM: Mark Noble, Planner II
SUBJECT: First Avenue Design Guidelines
DATE: December 18, 2007
The Historic Preservation Advisory Commission (HPAC) has been asked to assist with
developing design guidelines for the 1 S` Avenue corridor.
The HPAC has spent a considerable amount of time conducting research along the 1St
Avenue corridor and in the downtown area of Shakopee. Regarding structures that they
have researched along this corridor, the HPAC believes that this corridor and the
majority of structures found along this corridor (see buildings listed below for specific
examples) should be maintained as best as possible as they represent a time capsule of the
periods of Shakopee's history and development [first noted in Shakopee manufactured
brick structures, later as period styled buildings such as gas stations/ automobile
dealerships/drive-thru's/diner's, (circa. 1940's - 1960's), and then later as renovated
structures with alternative uses other than those of the original construction]. They do
agree that these buildings do have a historic value; however, they also acknowledge that
if it is not economically viable to renovate/restore a structure to the period/style of its
historic significance, that the City should not require it to be maintained as a historic type
building. The HPAC has stressed the importance of the City offering incentives for
people businesses to improve/maintain their historical structures, particularly the blocks
in the immediate vicinity of downtown along the 1St Avenue corridor (much like the
funded facade grant program) to ensure that this important corridor will well represent
the City of Shakopee as a great place to live, work and play.
Commercial (some historic, some significant in the period design, use and/or their place
in history) structures of note found along the ls` Avenue corridor include the following:
Taco Loco building (formerly Dairy Queen, 835 1St Avenue West)
Wampach's Restaurant (126 1 S` Avenue West)
Hennen's Shell Gas Station (807 1 S` Avenue East)
El Toro Restaurant (formerly Happy Chef, 1120 1St Avenue East)
Stemmer Farm & Garden (presently utilized as an art gallery, 126 Scott Street)
Perkins Restaurant (1205 1St Avenue East)
Command Center (1St & Spencer, formerly an auto dealership/old Ford garage that
incorporated large glass windows along the street fronts for showroom purposes, now
closed off/painted over)
Salon St. John (formerly St. John's Lutheran Church, 705 ls` Avenue East)
There are additionally a significant number of older structures in the 1St Avenue Corridor
that were originally constructed as residential houses, and the City has been fortunate to
have a number of individuals make improvements to and/or modify the structures as
successful office/retail uses, such as with the Ramstad & Kennedy Attorneys at Law
Office (525 1 S` Avenue East), How Quaint Antique Shop (714 1St Avenue East), Very
Barrie Gallery and Gift Shop (931 1St Avenue East), Morris & Wolf Attorneys at Law
Office (404 1St Avenue East), Salon St. John (formally St. John's Lutheran Church at 1St
& Market Street), and The Sign Shop (S S Design, 339 1St Avenue West), just to name a
few. In each of the cases noted above, the original structure had some feature (design,
material, etc.) that made it relatively easy, or worthwhile, to transform into a functional
and attractive business site. However, there are still a number of properties along this
corridor that have suffered extensive disrepair/lack of maintenance, which makes the
commitment to preserve/renovate the structure not entirely economically viable.
Regarding in-fill projects, the HPAC would base their determination on what
contextually is found adjacent to the site. If there was a historic brick building located
nearby to the project site, then it may make sense for the new structure to match closely
with that scale, design and/or materials. Commissioner Don Wagner presented an
example of a building located in downtown Excelsior, which utilized brick with
storefront windows and small panel glass transoms and wood paneling for framing
purposes. This building would be a good example of an in-fill project in this type of
situation.
There are a significant number of older structures, both residential and commercial, that
are found along this corridor that may be in some need of renovation, and with some
minimal assistance, they could be rehabbed for residential and/or commercial use. There
are several such structures on the south side of 1St Avenue, west of Fuller Street, that
would make a wonderful mini shopping/office/residential district.
As noted earlier, structures in this corridor from the 1940's-1960's identify that period of
growth in Shakopee, generally influenced by the automobile. This design is found in
several of the gas stations (ex. - Hennen's Shell Station), automobile sales lots and diners
(Happy Chef and Wampach's). The HPAC believes that although these types of
structures are typically not considered historic, they are significant in the shaping of the
community and are examples of architecture from that period of American history, and
for those reasons, they should be considered worthy of preserving.
In all three of these scenarios, the HPAC believes that development, with
commercial/office uses on the first floor and residential above, would be awin/win
situation for all, except that parking (or lack thereof) would need to be evaluated in more
detail. The HPAC discussed the likelihood of proposing shared parking in certain
situations (not unlike the downtown commercial district), and thought that an amendment
to allow more flexibility in this aspect would be beneficial. As an alternative to having
boarded up buildings, flexibility of uses and parking requirements would encourage
reuse/renovation of some of these buildings. Again, the HPAC's preference is to
promote renovation of buildings to their period of significance, or as an option, made to
appear closely in conformance with older style buildings.
As another adaptive reuse of existing building stock, the HPAC referenced the Perry
Dentist building (multi-tenant commercial/residential building on the north side of 1 sc
Avenue, west of Spencer Street) as another example of an opportunity to introduce
restaurants and condominiums into this market, retrofitting the buildings with elements
such as decks off the back (outdoor dining areas) with views overlooking Huber Park and
the Minnesota River. This type of project would not incur excessive project costs, and
the benefits would add value to the property and longevity of use of this property.
The HPAC also addressed design aesthetics of properties found in this corridor, stating
that if the City is serious about fixing up the ls` Avenue corridor, one thing that they
should look at the road conditions, as there are numerous cracks, bumps, and potholes
that detract from the impression one might develop of the 1 S` Avenue corridor. They also
believe that if the City were to dress up the street with new period street lights, street
furniture (benches, trash containers), trees/flowers (ex. - flower beds and additional tree
landscaping around the downtown Shakopee monument sign), that this might encourage
renovation projects from the property owners found along this corridor. Another item of
discussion concerning design aesthetics included the suggestion of eliminating barb
wire/chain link fencing along this corridor.
In summary, the HPAC would enthusiastically encourage the City Council to invest in
developing design guidelines and financial assistance programs for properties along the
1 S` Avenue corridor, and would wholeheartedly offer their assistance in this process, as
they believe the benefits of such a program would help make the goals and strategies
identified by the City Council a reality.
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City of Shakopee
First Avenue Design Guidelines;
For Use in Connection with the Facade Loan Program.
Preface
In 1999, the Shakopee City Council developed, and adopted "Downtown Design
Guidelines." These guidelines served as the basis for evaluating applications for loans
from the City's Downtown Facade Improvement Program.
In 2006, the City Council and Economic Development Authority (EDA) decide to expand
the loan program to include facade improvements for commercial properties in the City's
First Avenue corridor.
The First Avenue corridor poses special challenges and opportunities as against the
Downtown. Like the Downtown, there are a number of historic structures in this
corridor. However, most of the historic structures in the First Avenue corridor were built
as single-family residences. Some of these have now been converted to office and
business use, while others remain in single-family use. Because the First Avenue
corridor developed along what was previously a major arterial roadway over a long
period of time, there are a range of building types constructed at different times in the
City's development. Thus, the challenge in developing these guidelines is to develop
criteria that can be utilized in evaluating improvement plans for both historic and non-
historic buildings.
This guide is part of the City's ongoing efforts to encourage building improvements in
the City's broader historic commercial core.
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Map of First Avenue Corridor Boundaries
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INTRODUCTION
History of the First Avenue Corridor
(Reserved)
Building Project Categories
Like the structures in the First Avenue Corridor, each building project in the First Avenue
Corridor is likely to be unique. This is perhaps more the case because the corridor
contains buildings that date from the late 19`h to the early 20th century, to buildings that
are typical of highway architecture from the 1950's to the 1970's. Even so, most work on
buildings in the corridor will likely fall into one of the following categories:
Preservation-For buildings that have experienced little change through time.
Preservation consists of retaining and properly maintaining the existing historic aspects
of a building, whether turn of the century or mid-twentieth century. Buildings that retain
and reflect the historic character of the Corridor or the nearby Downtown area of the City
provide an important connection to the historic Downtown. The importance of
maintenance cannot be overstated. As buildings age, weather and deteriorate,
maintenance is easy to postpone. However, simple preventative measures such as
window caulking, repainting of exposed and worn surfaces, and prevention of water
leakage can go a long way toward preserving buildings and saving maintenance costs in
the long run.
Restoration-For buildings that have architectural significance, but have gone
through some change
Shakopee generally, and the Corridor specifically has buildings that are historically or
architecturally significant, but which may have been altered. Restoration is the process
of returning a structure to its original appearance. Restoration does not, however, mean
the creation of a precious museum piece. If the costs of restoration are to be justifiable, a
structure must have an economically feasible use.
Renovation-For buildings that have been modified extensively
Buildings can sometimes benefit from some degree of renovation using modern materials
and techniques that make them more efficient, but still convey the character of the
original features of the building. On the other hand, renovation often involves undoing
previous layers of maintenance or "modernization" (e.g. stripping off applied wood or
aluminum siding, uncovering original floors).
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Recycling-
New uses can be found for single purpose buildings. Warehouses, banks, service
stations, and restaurants are all examples of single-use structures. The challenge is to
recycle buildings whose original use is obsolete, by finding new uses that add to the
economic vitality of the First Avenue Corridor.
Redesign (For buildings that are basically sound, but do not enhance the First
Avenue streetscape)
There are some buildings in the First Avenue Corridor that are basically sound, but are
neither historic nor particularly unique in their architectural design, and as a result may
not enhance the visual character of the corridor. Such buildings can be redesigned to
better support the visual character of the Corridor. This can be accomplished by either a)
redesigning them to include visual elements that are consistent with existing historic
structures, or b) utilize proportions and/or materials that better integrate them into the
character of the corridor. In carrying out such redesign it is important that the new
facade(s) contain architectural elements and use building materials that are compatible
with the overall streetscape for the corridor.
Demolition (For buildings that are structurally unsound)
In some cases, renovation may no longer be a cost effective solution for a neglected
building. When a building is no longer structurally sound, has outlived its purpose, and
re-use is not practical, demolition may be justified. In such cases, demolition can create
opportunities with new construction to a) give the new building a better visual
relationship to the corridor, b) make the property more pedestrian friendly, c) create new
open space, d) provide more, better designed, or less obtrusive off-street parking which
should be carefully studied. Of course any new building/use should be designed to
complement and further enhance the character of the streetscape in this important
corridor.
New Construction (For filling gaps in the streetscape)
An important element is the quality of infill construction. The desired effect of new
construction in the First Avenue Corridor is to complement existing structures and
streetscape, and to "knit" existing and new structures and uses into a coherent image and
environment. The basic design elements of new construction (size, mass, material, color)
must be compatible with surrounding structures. These guidelines suggest ways of
achieving compatibility.
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Planning for Rehabilitation
Evaluate Your Building
Look closely at your building. It is often easy to see where changes have been made over
time. Look at buildings along the street that may not have had major alterations. If your
building is a historic one, look for historic photographs. Good sources are the book
Shakopee Scrapbook, the Minnesota Historical Society, and the Scott County Historical
Society. Even if your building is not a historic structure, you may want to look at historic
buildings to develop ideas about how your building could be redesigned to be more
compatible with such structures.
Set a Budget
Don't feel that you have to do everything at once. While your plan to update the building
and its facade(s) should reflect an overall approach, you may choose to complete the
actual work in phases. Keep in mind that there may be potential sources of assistance,
such as the Facade Loan Improvement Program, available through the City of Shakopee's
economic development office.
Decide on an Approach
The previous section described six basic facade improvement options. Your project may
fit into one of these categories, or it may overlap categories. Your budget and building
should be your guide in deciding on your approach. Try to pay special attention to the
functional and visual impacts your plans will have on neighboring buildings and the
streetscape.
Apply the Design Guidelines
The Design Review Subcommittee of the Shakopee Downtown/First Avenue Committee
is responsible through the Downtown/First Avenue Facade Loan Program for preserving
and enhancing a) the historic character of the Downtown District, and b) the architectural
character of the First Avenue Corridor. In that capacity the Subcommittee has design
review authority over building improvement projects that utilize funds from the loan
program.
Complete Design Review Application
Before a Facade Loan Program application will be considered for approval by a
participating financial institution, the Design Review Subcommittee must approve the
proposed design changes. The Subcommittee will make a recommendation to the City
EDA regarding approval of applications.
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The following information is required in the program application form:
Building Information:
The address, common name, historic name (if any), original use, construction date,
architectural style, and historic designation (if any) should be provided.
Project Information:
• A current photograph(s) of the exterior(s) of the building or site whether the work
is proposed to take place;
• A scaled elevation drawing illustrating the proposed alternations;
• A site plan (if new construction);
• A description of the methods and materials to be used in all proposed exterior
work and how this will affect the architecture of the building.
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The Design Review Process
The City's economic development office will notify the lending institution(s) in writing
of the design approval, with a copy of the program application and specific design plans
going to the lender working with the applicant. The applicant presents the signed and
notarized Design Review Consultation and Agreement form to the participating lender of
his/her choice.
Downtown and First Avenue Corridor Facade Loan Program
The Shakopee Downtown and First Avenue Corridor Facade Loan Program was first
established by the Downtown/First Avenue Revitalization Committee and the Shakopee
banking community to provide low-interest funding incentives to promote and improve
economic growth and development, to preserve historic and existing buildings, and to
revitalize the downtown area. In 2006, the program was expanded to include the First
Avenue Corridor.
The program consists of special reduced interest loans and exterior design assistance.
Participating financial institutions agree to allocate an investment fund from which loans
are available at a low interest rate; considerably lower than what is available through
conventional financing.
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Basic Architectural Design in Shakopee
By the early twentieth century, the City of Shakopee was home to several large banks,
newspaper publishers, insurance firms, law firms, and a collection of regional retail
establishments. Most of the notable building in the neighboring downtown took place
from the 1870s to the early part of the twentieth century. While some of the construction
in the First Avenue corridor took place in that same timeframe, much of the commercial
building took place later. Still the building types used in the downtown transcend styles,
and can still serve as a basis for new construction in the First Avenue corridor and for the
redesign of existing buildings.
Storefronts
The most important feature of commercial buildings in and near the downtown is the
storefront. The storefront emphasizes transparency that is created by the use of thin
structural members framing large sheets of plate glass. Large windows allow
merchandise display, and encourage window-shopping. Below the display windows are
base panels called bulkheads that are make of stone, wood or metal. Typically, the
entrance door is recessed to avoid disturbing sidewalk traffic and to provide cover.
Historic Building Types in Shakopee
The "City of Shakopee Downtown Design Guidelines" contains a good, brief
introduction and illustration of the historic building types that exist in the Downtown.
This information is useful, especially for projects involving new construction, or
significant redesign, in that they can guide the property owner and designer in trying to
develop a project that will better fit the corridor aesthetically, and visually pull together
with other buildings near by.
Historic Building Styles in Shakopee
Similarly, the "City of Shakopee Downtown Design Guidelines" is a good resource for
information regarding commercial architectural types utilized in the corridor. However,
many of the more historic structures in the corridor were not initially commercial
buildings, but rather residential structures. In developing plans for adaptive re-use of
such structures, it is important to analyze those changes that are necessary to make the
building function well for non-commercial use, but still maintain a good visual
relationship both to the street and to other buildings in the corridor.
In addition to historic buildings that date back to the nineteenth or early twentieth
century, First Avenue is home to a number of buildings whose original highway-oriented
architecture has garnered more interest over the years. Examples include the original
Perkins, El Toro (former Happy Chef) and Hennens. For such buildings it may be worth
examining the alternatives of restoring them to their original architecture (thereby
preserving a unique visual element that illustrates a particular period of the City's
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development) or redesigning them to fit in with the character of older, more historic
buildings in the Downtown and First Avenue area. Whichever approach is chosen, the
project should follow the principles of good storefront design that are set forth below.
Building Maintenance and Guidelines (Discuss whether this section should be
repeated in the First Avenue Guidelines)
General Storefront Design Considerations:
Contain the Storefront:
A storefront should be designed to fit within the original facade opening, and not extend
beyond it. The storefront might be set back slightly (a few inches) from the vertical plane
of the facade to accentuate this sense of visual containment.
Transparency:
Large display windows were a prominent feature of the traditional storefront. As a
design element, they are integral to the overall proportioning of the building facade.
Functionally, the large glass area makes the entrance to the building more inviting, and
provides maximum light and display area, while visually opening the facade to the street.
As a general rule, the storefront should be comprised primarily of glass, while the upper
facade (if one exists) should consist of more solid appearing materials with smaller,
evenly spaced windows.
(NOTE: THE FOLLOWING SECTIONS WILL BE REVISED FROM THOSE
FOUND IN THE "DOWNTOWN DESIGN GUIDELINES)
Appropriate Materials:
Doors and Windows
Architectural Details
Paint Colors
Signage - See Appendix A
Rear Entrances
New Construction
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Applying the Guidelines to Shakopee's Buildings in the First Avenue
Corridor
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Appendix A -Public Signage
Few communities in Minnesota have addressed how much and what types of Signage
should be located in their historic downtowns or the areas (like the First Avenue
Corridor) that surround or lead to them. The challenge for the community is to balance
the desire for a visually appealing corridor or downtown with the need to maintain public
safety and to effectively direct traffic flow. As a general rule, public Signage should be
clear and should use clear and conventional shapes, colors, and reflectivity. Public
Signage falls into the following three categories;
• Traffic signs;
• Limit signs;
• Directional/Information Signs.
Traffic Signs:
Because First Avenue/CSAH 101 serves not only the corridor and Downtown Shakopee,
but is part of an important network of regional roadways, to wit CSAH17/Marschall Road
and TH 212, traffic signs are the most critical in the First Avenue Corridor. Well
designed and place traffic signs are required to insure the smooth and orderly flow of
traffic, and to minimize the possibility of accidents. Traffic signs must conform to the
Minnesota Manual on Uniform Traffic Control Devices (MMUTCD) from the Minnesota
Department of Transportation (MNDOT). While limited, there is some latitude in the
design of these signs, which can help to create a consistent look and theme in the
corridor. Determining minimum requirements and reducing redundancy is necessary to
make the First Avenue Corridor a more attractive, more easily navigated location.
Limit Signs:
Limit signs (such as parking limits, handicapped parking, no parking zones, etc.) are not
as critical to safety concerns, but still need to be visually pleasing in their design and
location. While these signs should ultimately be uniform in style, at the outset of their
design there is more design latitude available. They should be prominently displayed and
large enough to be easily read, but should not overpower their surroundings.
DirectionaVInformational Signs
Informational signs include directions to important landmarks or areas (e.g. Huber Park,
the Downtown district), public parking, or other information needed to guide people to
key areas in the First Avenue Corridor, as well as adjacent and nearby areas. These signs
need to be clear and uniform in appearance, but provide the greatest design latitude for
professional designers engaged in designing them. The following principles should be
kept in mind when developing directional and informational signage:
• Less is more. Using the least amount of signage needed to be effective will keep
the corridor from appearing cluttered or overpowering.
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• All public signage in the First Avenue Corridor should be of uniform and high
quality design and construction.
• Signage can be effectively placed on existing decorative light posts and well-
designed sign posts.
• Signage, as well as banners and other temporary displays, should be color-
coordinated with a limited palette of colors complimentary to the predominant
building color palette in the Corridor.
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