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HomeMy WebLinkAbout15.C.4. Comprehensive Plan Update-Revised Text for the Riverfront/First Avenue District CITY OF SHAKO PEE IS: C .1 Memorandum CASE LOG NO.: NA TO: Mayor and City Council Mark McNeill, City Administrator FROM: R. Michael Leek, Community Development Director SUBJECT: Comprehensive Plan Update - Revised text for the Riverfront/First A venue District MEETING DATE: October 7, 2003 INTRODUCTION: Council had directed that staff and the consultant revise this section of the Comprehensive Plan Update to eliminate any reference to "land banking" or similar concepts. Staff believes that the necessary changes have been made. However, before setting the open house and public hearing dates and distributing copies to the residents and business owners in the district, staff wants to make sure that the Council is comfortable with the changes made. If Council is comfortable with the changes, staff will set an open house date that allows about 2 weeks notice to the residents and business owners in the district. Copies of the revised text will be sent to them as well ALTERNATIVES: 1. Provide staffwith direction regarding any further revisions it wishes to have made. 2. Indicate to staff, either by consensus or motion, that the Council is comfortable with the changes made and distributing copies of the revised text. 3. Table the matter and request additional information. REQUESTED ACTION: Indicate to staff, either by consensus or motion, that the Council is comfortable with the changes made and distributing copies of the revised text. ~dr~/~~~ R. Michael Leek Community Development Director G:\CC\2003\10-07\compplanupdaterev.doc 1 Historic Commercial Disfricts Riverfront/First A venue District RIVERFRONT/FIRST AVENUE DISTRICT The Riverfront/First Avenue District is located south of the Minnesota River and generally north of the railroad tracks with the west boundary being Sommerville Street and the east boundary about 200 feet east of Marschall Road. The District is characterized by abundant natural features along the riverfront with a mix of low to medium density residential housing dispersed along the Riverfront/First Avenue Corridor with commercial uses. There is not a clear pattern to the development and some vacant, underutilized and/or non-conforming buildings and lots are present. As First Avenue is the former Highway 101 Corridor, the visual impression of the District is dominated by the urban highway appearance with little green or landscaped space. Generally, asphalt or gravel parking lots abut the sidewalks that are located on both sides of First Avenue. Newer construction is characterized by increased setbacks from First Avenue and landscaped yards. There is a mixture of building forward construction (typically older, historic buildings and homes) and uses utilizing larger front parking lots and exterior storage. A variety of businesses including fast food, sit down restaurants, auto sales, storage yards and offices along with a mix of older and historic residential homes and churches are located within the District. The riverfront area is felt by many to be the City's hidden treasure. With the exception of the Highway 101 bridge crossing, Huber Park and limited glimpses of the river at locations such as Dangerfield's Restaurant or from the Bloomington Ferry Bridge, the riverfront is virtually hidden from many residents in the community, as well as people traveling through the community. Business owners and residents feel that access to the riverfront and Minnesota Valley National Wildlife Refuge should be better identified, more visible, and developed as an attraction for the community. Suggestions ranging from improving pedestrian and trail access to development of residential condominium high rises and business ventures that relate to or can take advantage of the views, scenic vistas, wildlife habitat and recreational opportunities were recommended during Tactics interviews and open house meetings. The following map illustrates the location and type of issue areas identified during the Comprehensive Plan update process. City of Shakopee Comprehensive Plan Update '103 Historic Commercial Districts Riverfront/First Avenue District INSERT RIVERFRONT/FIRST AVENUE ISSUES MAP City of Shakopee Comprehensive Plan Update 105 Historic Commercial Disfricts Riverfront/First Avenue District The following perspectives were provided from the public open house meetings and Tactics interviews regarding the Riverfront/First Avenue District: 1. An interest in redevelopment of the riverfront with additional upscale, life cycle, residential development has been expressed. The addition of residents to this area of the community is viewed as positive from many business owners; however, good pedestrian and vehicle access will be needed to encourage residents to shop in the Downtown and Riverfront/First Avenue D i stri ct. Additional life cycle housing would provide the opportunity for residents to view the river corridor while conserving land area that would further enhance the identity of this part of Shakopee. 2. The District is currently home to a variety of unrelated businesses, residences and open lots. Many indicated that there is a need to consolidate the business/retail and service operations to promote business interchange along the First Avenue Corridor, The current District is too long and interspersed with vacant parcels, dilapidated structures and vacant businesses. Emphasis is needed on enforcing code requirements to clean up properties, remove weeds and to produce a business climate that is conducive and supportive of various activities, 3, There are a number of single-family homes located within the commercial zoned areas within the Riverfront/First Avenue District. Similar to the Downtown District, the City Council will need to address the non-conforming status of homes located in commercial zoning districts, The City must make a decision about how non-conforming homes should be addressed with respect to the commercial development of the Riverfront/First Avenue District. 4. The possibility exists to develop a coordinated effort to utilize the Riverfront/First Avenue and Downtown District as tourism destinations. Many feel that efforts should be made to reconstruct the bikeway between Chaska and Shakopee to accommodate tourism, pedestrian/bicycle movement between the communities and to utilize the trail as a selling feature for visitors and residents. Incentives could be offered to attract more "up scale" restaurants, as opposed to fast food restaurants along the river corridor. Civic and special events that are designed to attract people to the community could also be structured to spin off business opportunities for shops, restaurants and similar operations. As an example, the City of Duluth holds "Grandma's Marathon" which attracts a large number of people to the City and stimulates the local economy as participants and spectators shop, stay in local hotels and dine in the community during the event. Several people indicated that there is a need for more small businesses (artist City of Shakopee Comprehensive Plan Update - 107 Historic Commercial Disfricts Riverfront/First A venue District shops, music stores, unique destination retail, etc.), along First Avenue. There is a viewpoint that this area should be marketed to the smaller businesses as the large "big box" retail operations are going to be located along Highway 169. 5, Many people indicated that the fact that the Riverfront/First Avenue District does not have an advocacy group to support planning and redevelopment efforts is a negative for the District. Several business owners indicated that the City should encourage the development of a group similar to Vision Shakopee to generate ideas and support proposals for infrastructure and redevelopment improvements along First Avenue and the riverfront. Additionally, the City should consider extending the boundaries for the Downtown Shakopee l='a9ade Loan and Deferred Loan Programs, to cover the entire Riverfront/First Avenue District. 6. First Avenue is viewed by many business owners to be viable for commercial development because traffic moves more slowly through the area than along the Highway 169 bypass, Passersby have more time to see the businesses and can easily drive to and access commercial operations. Businesses along First Avenue are also recognized or associated with historic Downtown which is a benefit because people recognize the general location of the commercial district. 7. The existing manufactured home park located on the east end of the Riverfront/First Avenue District poses challenges that require further review in that there is a need to improve the appearance along First Avenue and to develop a plan that concentrates business activities in nodes as opposed to the current disjointed, linear pattern. The manufactured home park poses unique challenges because of the age of the facility which limits the ability to relocate the park to a more suitable residential area. The manufactured home park is located within close proximity to First Avenue which limits streets cape improvement opportunities. 8, The Riverfront/First Avenue District is in a period of transition whereby some businesses (Dairy Queen, Cleves Market, CH Carpenter Lumber, and the Ford Dealership) have relocated to the Highway 169 corridor or closed while other businesses (Dangerfield's and Sabrosso) have or are considering expansion. Many individuals feel that there are too many used car sales operations located along First Avenue and that the City issues too many permits/licenses for such operations. A number of individuals commented that there is a general lack of code enforcement and/or requirements for surfacing, landscaping, signage, setbacks and buffering for used car lots and other outside storage operations, As a result, First Avenue has a poor visual appearance in many locations, Several business owners identified that the used car operations, poor property maintenance and lack of direction/investment along First Avenue negatively City of Shakopee Comprehensive Plan Update 108 Historic Commercial Districts Riverfront/First A venue District impact property values and hamper the ability to attract new customers to the area. There is a need to renovate or remove incompatible buildings/operations from the District to improve appearance and provide for continuity within the business district. 9. The opening of the Highway 169 bypass resulted in significant changes in area traffic patterns. As a result, regional traffic that once utilized First Avenue has been diverted to the Highway 169 Corridor. This change in traffic patterns has had negative and positive effects. Truck traffic no longer chokes First Avenue; however, the regional traffic that once provided a customer base for businesses such as the auto dealerships has also relocated to Highway 169, The City must consider the type of traffic in addition to traffic volume when developing plans for the Riverfront/First Avenue, Downtown and West End/Jackson Township Districts. Use of the railroad corridor should be further investigated to provide a means of transporting people between business and entertainment areas in the community, One idea is to institute a trolley car system as a people mover during the summer months and community festivals, 10. The Rjverfront/First Avenue District is also defined by a number of physical barriers that complicate land use development. Along the north, the Minnesota River Corridor, its floodplain and bluffs define the northern edge of the developable land. First Avenue divides the district. This major traffic carrier complicates site access and limits the amount of buildable land to the north. Finally, the Union Pacific railroad runs parallel to Second Avenue. The railroad is a barrier that complicates land use planning and traffic circulation. The railroad limits access points and is an intense land use located in close proximity to adjoining residential and commercial properties. City of Shakopee Comprehensive Plan Update 109 Historic Commercial Districts Riverfront/First Avenue District LAND USE PLAN Upon evaluating the physical characteristics of Riverfront/First Avenue District along with the issues and expectations identified through the Tactics interviews, the following land use plan suggestions have been made. COMMERCIAL While most of the Riverfront/First Avenue Corridor is currently zoned commercial, the commercial land use patterns have been sporadic and eclectic in overall design. The 2002 Scott County HRA Analysis of Commercial Land Absorption for Scott County and Shakopee suggests that Shakopee currently has a oversupply of commercial land use. This current supply, in addition to areas identified through this comprehensive planning process for new commercial growth, suggest the opportunity to reduce commercial land supply along First Avenue, The new commercial locations elsewhere in the City have a competitive advantage over the First Avenue location and in light of recommendations made for the West End/Jackson Township District, the Downtown District and Marschall Road District. It is likely that market conditions may lead to some changes in the quantity and types of commercial uses along First Avenue. city of Shakopee Comprehensive Plan Update 110 Historic Commercial Disfricts Riverfront/First Avenue District INSERT RIVERFRONT/FIRST AVENUE LAND USE MAP City of Shakopee Comprehensive Plan Update 111 Historic Commercial Districts Riverfront/First A venue District The Land Use Plan attempts to build on existing strong businesses in the area. On the west end of this district, commercial locations currently exist between Fillmore and Spencer Streets and are proposed to continue to exist as an extension of the Downtown District. Additionally, the plan proposes a commercial node located at the intersection of Marschall Road and First Avenue. This high volume intersection is currently surrounded by entertainment and recreational commercial uses including restaurants, hotels, and the VFW. By concentrating the development at this single location, the City will be looking to promote an attractive commercial image along the balance of First Avenue. In looking at the proposed commercial areas, the City should focus on land uses that will complement the existing in-place commercial businesses. Two areas of specific concern in this vicinity is the existing manufactured housing park located north of First Avenue and immediately west of Dangerfield's Restaurant and the automobile dealership south of First Avenue. The manufactured housing park is in a state of decline, The structures are showing deterioration and the grounds are not well maintained. The overall impact of the manufactured housing park's existence is a negative impact on the surrounding commercial uses. The future relocation of the manufactured housing park will be essential for the future success of this commercial area. A second area of concern lies south of First Avenue and east of Marschall Road. These sites currently hold automobile dealerships that have historically relied on the traffic flow along First Avenue. With the diversion of traffic to the Highway 169, there has been conversation that the automobile-oriented businesses may look at alternative sites at one of the Highway 169 interchanges, This will leave two large sites available for future redevelopment. , The type of commercial land uses for these locations should be complementary to the surrounding properties and the existing commercial businesses, In looking at the potential redevelopment along First Avenue, concern has been raised with the eclectic appearance of many of the existing commercial uses. There is a desire for a uniform streetscape treatment that is similar to Downtown to be extended along First Avenue and Marschall Road. City of Shakopee Comprehensive Plan Update 113 Historic Commercial Districts Riverfront/First Avenue District The importance of streetscaping in establishing a community's character cannot be over stated. Features provided along a community's streets help make it spatially memorable. In this regard, streetscaping along the City's Downtown transportation corridors is viewed as a step toward implementing a positive community image. In considering Downtown Area streetscaping efforts, it is believed that an identifiable image has already been established in the historic urban area and future efforts along First Avenue and Marschall Road should expand and reinforce such image, While the reinforcement of such Downtown image along First Avenue and Marschall Road is believed possible, it should be recognized that an exact replication cannot be achieved due to expanded right-of-way and street width requirements, County access standards and the need for building setbacks. To emphasize the downtown character, it is suggested that a maximum 20 foot front yard setback be imposed for new redevelopment. This will make the building part of the streetscape and reduce the current emphasis on front yard parking and sales lots, Streetscaping improvements may exist within the public right-of-way, upon private property (front yard areas) or a combination of both. In regard to streetscaping along the First Avenue and Marschall Road corridors, it is recommended that both right-of- way and private property improvements be pursued. It is anticipated that boulevard areas (within the street the street right-of-way) will be devoted to pedestrian circulation/walkways, street furniture, planters, lighting etc. while private property improvements may primarily include plantings and business signage, The following exhibits suggest streetscape improvements that may occur in conjunction with new redevelopment projects. 1. Riqht-of-Wav Improvements. Due to the limited right-of-way and functional classification of these roadways, the proposed right-of-way improvements are primarily utilitarian, focusing on transportation (automobile, pedestrian, mass transit). a. Prohibition of on-street parking on First Avenue and Marshall Road, b. Proposed improvements within the boulevard: , Sidewalks 10 feet wide extending from curb. Additional width is suggested to provide pedestrian safety and comfort along this high volume street. The wider sidewalk should also reduce maintenance pertaining to the care of grass areas, . Street lighting (duplicate the Downtown street lighting and banners). City of Shakopee Comprehensive Plan Update -114 Historic Commercial Districts Riverfront/First Avenue District INSERT FIRST AVENUE STREETSCAPE CONCEPT 1 City of Shakopee Comprehensive Plan Update 115 Historic Commercial Districts Rivet1rontlFirst Avenue District INSERT FIRST AVENUE STREETSCAPE CONCEPT 2 - City of Shakopee Comprehensive Plan Update 116 Historic Commercial Districts Riverfront/First A venue District c, Uniform signage. d. Street furniture (benches, trash receptacles). e. Mass transit stops, 2. Private Property Improvements. The private property improvements associated with new development or redevelopment would emphasize the aesthetic streetscape features. a. Expand buildings toward the streets. b. Prohibit front yard parking, storage or sales lots. Parking lots would require proper screening from public rights-of-way using curtain walls that match the building design or landscaping. c. Front yard landscaping could include the planting of canopy trees with uniform setbacks from the street and spacing that contributes to the streetscape appeal. d. Front yard areas may be landscaped or designed with sidewalks or plazas to reduce landscape maintenance. e. Front yards would also be available for uniform business signage. Implementation of the streetscape improvement will likely occur incrementally along First Avenue or Marschall Road. Some of the improvements such as the right-of-way improvement may proceed with the private property improvements. City of Shakopee Comprehensive Plan Update 117 Historic Commercial Distncts Riverfront/First A venue District INSERT COMMERCIAL DEVELOPMENT CONCEPT HERE City of Shakopee Comprehensive Plan Update - 118 Historic Commercial Districts Riverfront/First A venue District MIXED USE A mixed land use is proposed on both north and south of First Avenue. This land use classification is reflective of existing uses in the area and provides the City with some flexibility in evaluating its future redevelopment options. The area along First Avenue has an eclectic land use pattern that includes both residential and commercial land uses. The mixed land use classification will allow these existing uses to continue as conforming uses. The future range of uses proposed within this mixed use area will be commercial land uses as well a variety of residential housing types designed in a manner that accomplishes the City's streets cape and design intentions. Within the area, there exists a number of older homes that have historic architectural value that may offer opportunities for renovation and continued uses of residential homes or reuse as commercial or office land uses in the future. Through the establishment of the mixed use land use classification and subsequently change in zoning that will reflect the mixed use intentions, existing homes that are currently non-conforming under the commercial zoning classifications will be allowed as interim uses, thus permitting the property owners opportunities for reinvestment of their homes and maintenance of their structures beyond means of retaining value and promoting a more desirable residential neighborhood. lOW DENSITY RESIDENTIAL The Riverfront/First Avenue District includes a number of low density single family areas. The following strategies address the low density land uses: 1, With a mixed land use classification, the City has the intention of allowing for a range of residential and commercial land uses within the same area. Within the mixed use zoning classification, performance standards will be established to ensure compatible land use relationships between the different uses, 2, The City will amend its zoning to allow single family homes as an interim use within the mixed use area designated within the Riverfront/First Avenue District. As an interim use, existing single family homes will no longer be non-conforming and may be maintained and expanded as a means of retaining value and promoting reinvestment in these neighborhoods, City of Shakopee Comprehensive Plan Update 119 Historic Commercial Disfricts Riverfront/First A venue District 3. The Riverfront/First Avenue District contains some single family homes within the original historic architecture, Where possible, the City wishes to retain these structures through renovation to promote their continued use as residential housing units or their conversion to commercial uses that will contribute to the long range commercial goals for this area. SUMMARY OF RIVERFRONTIFIRST AVENUE DISTRICT RECOMMENDATIONS 1. Concentrate commercial land uses within the Riverfront/First Avenue Planning District. 2. Examine opportunities for the relocation and redevelopment of the manufactured housing park located north of First Avenue and west of Dangerfield's Restaurant. 3, Investigate redevelopment potential of the automobile dealerships south of First Avenue and east of Marschall Road. If these become available through dealership relocation, land uses that are complementary to the current restaurant and hospitality theme should be encouraged. Other potential uses that may be appropriate for the area would be offices which could benefit from their proximity to Shakopee's industrial park. 4. Examine commercial performance standards that encourage redevelopment to have building forward site design that utilizes the building architecture as an accent for the overall First Avenue streetscape. 5, Control access points from First Avenue into commercial sites, Locate parking between buildings and use accent walls or landscape screening to minimize their visual impact on First Avenue. Promote shared parking arrangements to minimize the overall parking demand within the commercial areas. 6, Establish uniform streets cape through sidewalks, landscaping, and street lighting that provides a uniform appearance along First Avenue. Streetscape treatments should continue through the commercial areas and into the proposed residential areas. '"..h.. . City of Shakopee Comprehensive Plan Update 120