August 2016 COTTAGE GROVE STATION AREA PLANNING REPORT

Transcription

1 August 2016 COTTAGE GROVE STATION AREA PLANNING REPORT

2 Introduction The Red Rock Corridor is a proposed 30 mile transitway that runs along Highway 61 and Interstate 94 between Hastings and Union Depot in Saint Paul. The Washington County Regional Railroad Authority (WCRRA), Dakota County Regional Railroad Authority (DCRRA), Ramsey County Regional Railroad Authority (RCRRA), and Hennepin County Regional Railroad Authority (HCRRA) have initiated an Implementation Plan for the Red Rock Corridor. The Implementation Plan builds off the recommendations from the 2013 Alternatives Analysis Update to create a financial, development, and service plans to lead toward the long term goal of more transit service in the corridor and better connections to the regional network. The preferred corridor alignment (Figure 1) includes bus rapid transit (BRT) service generally along Highway 61. The proposed service would occasionally deviate from Highway 61 to serve existing destinations and densities rather than park and ride stations, thus supporting allday, bi directional transit service. The alignment includes stations at Union Depot, Mounds Boulevard Station, Earl Street Station, Etna Street Station, Lower Afton Station, Newport Transit Station, St. Paul Park Station, 80 th Street Station, Jamaica Avenue Station, Hastings Depot, and two other station locations in Hastings. Riders could access many destinations from the Union Depot using other transit service including express buses, local buses, and the METRO Green Line. Station Area Planning This report provides context and recommendations for the station areas along the Red Rock Corridor between downtown Saint Paul and Hastings. The intention of the Red Rock Corridor station area planning process was to locate stations and, where appropriate, to demonstrate the potential for a transit oriented development (TOD) pattern around each station. The success of transit is dependent upon proper land use planning along the corridor, specifically in the station areas. Likewise, the success of TOD is dependent upon the implementation of high quality transit like BRT. Figure 1: Preferred Alternative The purpose of this report is to guide the cities within the Red Rock Corridor in reviewing and planning for improvements to station areas in preparation for potential future BRT in the corridor. The context and recommendations in this report will serve to inform the cities as they update their comprehensive plans. Principles of TOD Transit oriented development (TOD) is a type of community development that provides a mix of housing, office, retail, and commercial uses within walking distance to public transportation. Living, working, and shopping in TODs has become more popular and common with the growing interest among young people, seniors, and others in driving less and living close to transit. TODs encourage greater transit ridership and provide nodes of activity and commerce around transit stations. This results in more efficient use of land, energy, and resources that increases transit ridership and fare revenue. TODs are typically located next to transit corridors with regular service, most often light rail transit or BRT service. August

3 Metropolitan Council s Transit Oriented Development Policy The Metropolitan Council s Transit Oriented Development Policy 1 identifies six general principles that can be used to define TOD type development: 1. DIVERSITY A mix of land uses located within close proximity, preferably accessible by foot or a short transit trip. 2. DENSITY A higher concentration of infrastructure and amenities, and a compact built environment that allows more workers and residents to live near transit. Figure 2: Clarendon Market Commons, Arlington, VA 3. DESIGN High quality, safe, pedestrian oriented streets and public spaces. 4. DISTANCE TO TRANSIT Development is ideally within a 10 minute walk of transit. 5. DESTINATION ACCESSIBILITY Proximity to retail, employment, and service destinations that allow people to meet daily needs without the use of a car. Figure 3: Falcon Heights Town Square 6. PARKING Limited parking supply for residents, workers, and customers and coordinated, district wide parking solutions for the station area. Other Key Considerations for Creating TOD 2 CREATING CONNECTED AND COMFORTABLE STREETS AND A SENSE OF PLACE Developing within a half mile of a transit stop/station creates a comfortable distance for people to walk to their destinations. Streets and intersections should offer safe connections and access for all modes of transportation. Pedestrian scale development, landscaping, public art, and other streetscape elements should be integrated into the design of the TOD to create a sense of neighborhood, place, and cohesion. BUILDING INTENSITY AND CONCENTRATION OF USES Allowing higher density development with a variety of land uses near transit areas encourages economic and recreational activity, which can also increase transit ridership. However, density needs to be appropriate to the setting and should depend on the context of the community. Benefits of TOD 3 There are many social, economic, and environmental benefits from TOD. A summary of these benefits include: 1 Source: Metropolitan Council. Communities Grants/Maps, formsmisc/lca TOD Handbook.aspx 2 Source: American Planning Association, Zoning Practice. 3 Source: Center for TOD. Why TOD and Why Now. August

4 Social Leads to walkable communities, which support more healthy and active lifestyles Expands travel choices to jobs and reduces transportation costs for households Improves neighborhood safety due to increased street activity, community building, and the instilling of a sense of community place and pride Economic Increases ridership and fare revenue Improves property values and lease revenues Generates foot traffic for local businesses Reduces transportation expenditures Lowers cost of transit ridership compared to bus service or parking structures are needed to bring riders to stations Figure 4: Portland s Pearl District Environmental Reduces driving, congestion, air pollution, and greenhouse gas emissions Uses of land, energy, and resources more efficiently Conserves open space Challenges of TOD 4 While there are many benefits to TOD, challenges exist. Low income renters are the most at risk with TOD as they are more likely transit dependent, but it is often challenging to provide affordable housing within TOD areas. As a result of TOD, low income renters can be pushed to neighborhoods with lower quality housing because of the higher land costs near transit. However, there are tools and policies available that can be used in the early planning stages to ensure that affordable housing is protected or made available in TOD areas. These tools include: Figure 5: Rendering showing plans for PLACE in St. Louis Park Direct Low Income Housing Tax Credit (LIHTC) for TOD Land banking and community land trusts Reduced parking requirements Use of private sector value capture to reinvest in funding affordable housing Public private partnerships Incentive based zoning Inclusionary zoning Infill/redevelopment in transit zones In addition to the social impacts, other challenges of TOD can include: Zoning changes may be required Change is difficult for areas that have not previously had TOD or high density development Time for TOD to occur is different in every area TOD in the Twin Cities The Metropolitan Council offers TOD grants for projects that promote moderate to high density development projects located within walking distance of a major transit stop that typically include a mix of uses such as housing, jobs, restaurants, shops, and 4 Source: Center for TOD. research.php August

5 entertainment. More information on the Council s TOD grants can be found here: Communities Grants/Transit Oriented Development.aspx. A few examples of TOD in the Twin Cities include: Bloomington Central Station Hamline and Dale Stations along the METRO Green Line, Saint Paul Regency, Hopkins PLACE, St. Louis Park Liberty on the Lake, Stillwater Falcon Heights Town Square Examples of TOD around the U.S. include: Clarendon Market Commons, Arlington, VA Bayshore Town Center, Milwaukee, WI Portland s Pearl District, Portland, OR 16 th Street Mall, Denver, CO Cottage Grove Context Early settlement in Cottage Grove centered on three distinct geographic areas, Atkinson Corners (80 th Street), Langdon Village, and old Cottage Grove. Cottage Grove was referred to as the New England of the West due to early structures built in a Greek Revival style of architecture. Langdon Village was a railroad town, served by the Saint Paul and Chicago Railroads. Both settlements were platted in The communities maintained very rural development patterns until the 1950s, when a period of steady growth of suburban housing began. From 1950 to 1970, the City grew from 833 residents to over 13,400. By 2000, Cottage Grove was home to about 30,000 people and was one of Minnesota s fastest growing communities. Figure 6: Bloomington Central Station TOD Site Plan Cottage Grove now boasts over 35,000 residents and 7,000 jobs. 5 The area has proven to be a successful location for companies such as 3M, Renewal by Andersen, Werner Electric, and Up North Figure 7: The 80th Street Station area Plastics. Residents and businesses take advantage of convenient access to urban opportunities in Saint Paul, while enjoying the recreational amenities, open spaces, high quality schools, and closeknit community that Cottage Grove offers. 80 th Street Station Station Area Characteristics LOCATION AND CONTEXT A BRT station is proposed on the east side of Highway 61, south of 80 th Street along East Point Douglas Road. This location is in the west/northwest part of Cottage Grove. The proposed station is located in a commercial area, near the future Hy Vee and former 5 August

6 Home Depot sites. This site was chosen based on the presence of a traffic light, proximity to retail, and opportunities for redevelopment. FIGURE GROUND DIAGRAMS To get a sense of the spacing and size of blocks and buildings in the proposed station area, two figure ground diagrams were produced. Figure ground diagrams depict the relationship between built and unbuilt (open) space. The first figure ground diagram (Figure 8) illustrates the street grid and development pattern. The block/street diagram in the 80 th Street station area reflects a classic suburban development pattern with large buildings and large separate blocks with segregated land uses. Street patterns tend to be limited to a major arterial road and access cul de sacs. Blocks do not typically vary in size or dimension. The second building/parcel figure ground diagram (Figure 9) illustrates the size of the buildings within a parcel. Buildings that are located on the edge of the parcel and fronting the street are easily accessible to pedestrians. If buildings are located on parcels much larger than the building footprint and away from the street, the development is considered autoorientated, because it was arranged to handle high parking and traffic volumes. Like the street and block pattern, the building/parcel patterns at the 80 th Street station consist of large buildings within parcels that are arranged to handle high parking and traffic volumes. While there may be opportunities to walk or bike on sidewalks and trails parallel to existing streets, pedestrians and bicyclists likely need to traverse parking lots to reach building entrances. Figure 8: Block/street figure ground diagram for the 80 th Street Station area EXISTING LAND USE Land uses adjacent to the station area are primarily commercial, located on larger lots separated from the roadway by lawns or parking lots. Land use beyond the station area to the east transitions to a single family residential neighborhood accompanied by parks and school property. Figure 9: Building/parcel figure ground diagram for 80 th Street Station area OWNERSHIP There are currently a few landowners in the proposed station area: Hy Vee is developing the former Rainbow Foods site Dominium is developing housing to the northwest of the station area The former Home Depot site is in the process of changing ownership, and is planned for redevelopment as a multi tenant space Other parcels in the station area are privately owned. August

7 CURRENT ZONING The land in the proposed station area is currently zoned as Retail Business District (B2) and General Business District (B3) (see Figure 10). B2 is the City s retail business district used to regulate retail sales and service. B3 is the general business district used to provide for centralized areas for retail, highway, and auto oriented uses. Residential land uses are not permitted in these districts. Comprehensive Plan Guidance The City of Cottage Grove Future Vision 2030 Comprehensive Plan identifies the planned land use for the 80 th Street Station area as Commercial Service (see Figure 11). This is defined as Retail sales and services, including professional services, private institutional uses, as well as recreational services that are predominantly privately owned and operated for profit. Recommended Opening Day Site Improvements BRT IMPROVEMENTS Two station platforms, signage, and pylons Two smaller arterial shelters Two smaller scale ticket vending machines One Go To Card validator Station amenities (trash receptacles, bike racks, and park style benches) Roadway improvements necessary to construct platforms Major utility reconfiguration associated with adjacent or concurrent land development Minor pedestrian improvements (ADA ramps at platforms to connect to existing sidewalk, etc.) Figure 10: Current zoning near the 80th Street Station CITY IMPROVEMENTS Depending on what land development occurs outside of the BRT station, there is civil infrastructure work that will be needed above and beyond the BRT Improvements listed previously. These improvements are not assumed as a Figure 11: The planned land use in the 80th Street Station area is primarily Commercial Service (shown in red) project cost, so they will need to be financed by either the City or the developer. While these improvements can be generalized into the following five items, the scope of each will vary greatly according to the specific development use and design: Utilities: major utility reconfiguration associated with adjacent or concurrent land development would need to be financed and constructed by the City or developer; coordination with station construction may be possible Land acquisition: Land outside of the station platform for any new development would need to be acquired by the City or developer if it is not already publicly owned. Roadway configurations: Concurrent roadway improvements outside of the station area would need to be financed and constructed by the City or developer; coordination with station construction may be possible Right of way reallocation: Restriping of new lanes or movements as requested to accommodate demand outside of transit ridership will need to be led by the City Crossings: Adding sidewalk crossings and markings outside of the station platform were not included in the project improvements August

8 Long Term Station Area Recommendations This plan proposes a long term land use plan at the 80 th Street Transit Station in conjunction with BRT serving the station (see Figure 12). The proposed land use plan is consistent with guidance from the Red Rock Station Area Master Plan. A mixed of land uses, including some commercial and medium to high density residential have historically supported transit and are therefore generally recommended for this area. The City s comprehensive plan identifies only commercial uses in the station area in the future. To facilitate long term development at the station area in conjunction with BRT, the City should update its comprehensive plan to identify this area with mixed uses in order to support future BRT. Figure 12: Potential TOD Build Out Scenario for 80th Street Station Jamaica Avenue Station Station Area Characteristics LOCATION AND CONTEXT A BRT station is proposed on the east side of Highway 61 on East Point Douglas Road between Inwood Avenue and 90 th Street South. There are trails on both sides of Jamaica Avenue, with marked pedestrian crossings at the intersection of Jamaica Avenue and East Point Douglas Road. Pedestrian trails and crossing infrastructure would be necessary for a station on East Point Douglas Road. A station was proposed at this location due to the proximity to the potential school district redevelopment parcel, businesses, and housing. Figure 13: The Jamaica Avenue Station area August

9 FIGURE GROUND DIAGRAMS To get a sense of the spacing and size of blocks and buildings in the proposed station area, two figure ground diagrams were developed, which highlight constructed versus open spaces. The block/street figure ground diagram (Figure 14) illustrates the street grid and development pattern. For instance, small blocks with straight streets are more typical in urban environments and foster pedestrian activity, while larger blocks with winding, less frequent streets are more typical of suburban developments and are more auto oriented. The building/parcel figure ground diagram (Figure 15) illustrates the size of the buildings within a parcel. Buildings that are located on the edge of the parcel and fronting the street are easily accessible to pedestrians. If buildings are located on parcels much larger than the building footprint and away from the street, the development is considered auto orientated, because it was arranged to handle high parking and traffic volumes. Figure 14: Block/street figure ground diagram for Jamaica Avenue Station area The station area includes a limited street network and blocks that are larger than a traditional city block. This is a familiar pattern that is typically found near highway interchanges. The auto oriented pattern of separated land uses and individual parking lots is organized for individual access and to provide the required parking based on the building size. While there may be opportunities to walk or bike on sidewalks and trails parallel to existing streets, pedestrians and bicyclists likely need to traverse parking lots to reach building entrances. EXISTING LAND USE Land uses adjacent to the station area are retail and commercial uses typically associated with a highway interchange fast food and other restaurants, hotel, car Figure 15: Building/parcel figure ground diagram for Jamaica Avenue Station area wash, etc. The northern part of station area transitions to a single family residential neighborhood, and larger lot commercial and retail uses are found to the south. OWNERSHIP The South Washington County School District owns a large parcel on East Point Douglas Road. Informal conversations with the District confirm a willingness to accommodate the BRT station and allow for the District to continue operating programs at this location. CURRENT ZONING The area near Jamaica Avenue on the east side of Highway 61 is currently zoned as Retail Business District (B2) and General Business District (B3) (see Figure 16). B2 is the City s retail business district used to regulate retail sales and service. B3 is the general business district used to provide for centralized areas for retail, highway, and auto oriented uses. Residential uses are not allowed in these districts. August

10 The City also has a planned unit development (PUD) district and a planned development overlay. The purpose of the PUD district is to encourage the following: flexibility in land development and redevelopment; provision of lifecycle housing to all income and age groups; energy conservation; preservation of desirable site characteristics and open space and protection of sensitive environmental features; more efficient and effective use of land, open space, and public utilities; high quality of design compatible with surrounding land uses; and sensitive development in transitional areas. The purpose of the planned development overlay district is to promote creative and Figure 16: Current zoning for the Jamaica Avenue Station area efficient use of land by providing more flexibility in the design of land development than is presently possible through the strict interpretation of conventional zoning and land division ordinances. Both the PUD district and planned development overlay require consistency with the underlying land use guidance and underlying zoning districts. Comprehensive Plan Guidance The City of Cottage Grove Future Vision 2030 Comprehensive Plan identifies the planned land use for the east side of Highway 61 in Jamaica Avenue Station area as commercial use (see Figure 17). This is described as Commercial development including retail, service, and office uses. With few exceptions, areas designated for commercial development are within the MUSA. In general, the generalized land use plan in the 2030 Comprehensive Plan focuses on a significant new development called the East Ravine. This is a large area in the southern part of Cottage Grove (north and east of Highway 61) that is guided for industrial use. The East Ravine area is found just to the east of the proposed station area. Figure 17: The planned land use on the east side of Highway 61 in the proposed station area includes Commercial Service (shown in red) and Low Density Residential (shown in tan) Recommended Opening Day Site Improvements This plan proposes the addition of the following improvements by opening day operations of BRT: Improvements for an opening day scenario would include station shelters, parking spaces for 80 cars, pedestrian improvements, and the realignment of East Point Douglas Road. The realignment would require land acquisition from the South Washington County School District in order to accommodate the needed right of way. These improvements are for BRT only; but there may be potential in the long term for express bus (including parking) to be served from this station location as well. BRT IMPROVEMENTS Two station platforms, signage, and pylons Two shelters Two smaller scale ticket vending machines One Go To Card validator Station amenities (trash receptacles, bike racks, and park style benches) Major roadway and parking lot reconfiguration, including Jamaica Avenue realignment August

11 New parking provided for park and ride users Major pedestrian improvements at new station location CITY IMPROVEMENTS Depending on what land development occurs outside of the BRT station, there is civil infrastructure work that will be needed above and beyond the BRT Improvements listed previously. These improvements are not assumed as a project cost, so they will need to be financed by either the City or the developer. While these improvements can be generalized into the following five items, the scope of each will vary greatly according to the specific development use and design: Utilities: major utility reconfiguration associated with adjacent or concurrent land development would need to be financed and constructed by the City or developer; coordination with station construction may be possible Land acquisition: Land outside of the station platform for any new development would need to be acquired by the City or developer if it is not already publicly owned. Roadway configurations: Concurrent roadway improvements outside of the station area would need to be financed and constructed by the City or developer; coordination with station construction may be possible Right of way reallocation: Restriping of new lanes or movements as requested to accommodate demand outside of transit ridership will need to be led by the City Crossings: Adding sidewalk crossings and markings outside of the station platform were not included in the project improvements August

12 Long Term Station Area Recommendations Figure 18: Recommended opening day site improvements in the Jamaica Avenue Station area This plan proposes a long term land use plan at the Jamaica Avenue Transit Station in conjunction with BRT serving the station. The proposed land use plan is consistent with guidance from the Red Rock Station Area Master Plan. The larger station area (see Figure 12) has three large tax exempt parcels that are recommended for conversation to a mixed or higher density use to support the transitway. Figure 19 presents an example of this potential future build out on one of the currently tax exempt parcels. The proposed redevelopment scenario includes space for school district operations, while also allowing space to develop additional multi family housing. The future opportunities for redevelopment near the Jamaica Avenue Transit Station may extend beyond the area immediately adjacent to the station to the surrounding area. The City s comprehensive plan identifies only commercial uses in the station area in the future. To facilitate long term development at the station area in conjunction with BRT, the City should update its comprehensive plan to identify this area as serving future BRT, and include mixed use and residential as future land uses in this station area. Another long term alternative would be to relocate the Metro Transit Cottage Grove Park & Ride to this location with a structured deck that would have space for approximately 600 cars. The addition of the structured deck would also allow the surface BRT lot to be converted into a mixed use or residential building. August

13 Figure 19: Potential TOD build out scenario in the Jamaica Avenue Station area. Green space shown in the schematic could accommodate stormwater needs using Low Impact Design (LID) and green infrastructure techniques. Recommended Comprehensive Plan Wording Modifications This report recommends incorporating the changes transcribed below in the City of Cottage Grove Future Vision 2030 Comprehensive Plan (deletions are indicated by strikethrough and additions by underline). Proposed language should be included in the updated 2040 Comprehensive Plan. These text revisions reflect the changes to the Red Rock Corridor project since these documents were published. Document sections are indicated for reference; however, this does not mean the whole section is proposed for revision. Revisions are specific to the language included below. Land Use Designations Transit Oriented Development: Areas designated transit oriented development include a mix of uses organized around a transit station. Residential densities of units per acre are appropriate in these land use areas. (Reference page 2 10, 2030 Comprehensive Plan) Roadway System Policy 6.8 The City will continue to support and participate in the Red Rock Corridor Commission and its efforts to implement Bus Rapid Transit (BRT) commuter rail service in the Red Rock Corridor. This will include conducting includes station area planning for proposed potential station locations in Cottage Grove. Policy 6.9 The City will continue to support development of a high speed rail corridor between St. Paul and Chicago on an alignment through Cottage Grove to help reduce the cost of implementing commuter rail service in the Red Rock Corridor. (Reference page 6 3, 2030 Comprehensive Plan) August

14 Transit Red Rock Corridor Cottage Grove has participated in the Red Rock Corridor Commission since its inception in the late 1990 s. This Commission is made up of communities along the corridor from Hastings to St. Paul and includes the Regional Railroad Authorities in Washington, Dakota, Hennepin, and Ramsey Counties. The Red Rock Corridor is included as an Express Bus transitway in the 2040 Transportation Policy Plan that includes three park and ride facilities at Lower Afton, Newport, and Cottage Grove. The Red Rock Corridor is also identified in the Counties Transit Improvement Board s Phase I Program of Projects, which means it is eligible for grant funding from existing sales tax resources a Tier 2 corridor in the Metropolitan Council s 2030 Transitway System. In 2007 the Red Rock Corridor Commission completed an Alternatives Analysis of possible transit improvements in the corridor. The study called for future development of a commuter rail line from Hastings to St. Paul, with a station located in Cottage Grove. Prior to implementing commuter rail service, the study proposed interim transit improvements within the corridor including additional express bus service and expanded park and ride lots. In 2008 and 2009, the City will work with the Corridor Commission to plan for future commuter rail stations within Cottage Grove. Two locations along the Canadian Pacific tracks will be considered: in the Langdon area and at the existing park and ride lot on West Point Douglas Road. Cottage Grove worked with the Commission to plan for a BRT implementation plan that recommended two station locations east of Highway 61: one on East Point Douglas Road just south of 80 th Street and one further south on East Point Douglas Road just north of Jamaica Avenue. (Reference pages 6 27 and 6 28, 2030 Comprehensive Plan) August