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Brooklyn Blvd Streetscape Study 1994
Brooklyn Boulevard Streetscape Amenities Study May 1994 Prepared for: The City of Brooklyn Center Minnesota 1 Prepared by; BRW - Brooklyn Boulevard Streetsca a Amenities Study y May 1994 Prepared for: The City of Brooklyn Center Minnesota Prepared by: BRW PARTICIPANTS City of Brooklyn Center 6301 Shingle Creek Parkway Brooklyn Center, MN 55430 (612) 569-3350 City Council Planning Commission Todd Paulson, Mayor Tim Wilson Donald Booth Barb Kalligher Chairperson Debra Hilstrom Kristen Mann Robert Mickelson Mark Holmes Dave Rosene Chair Pro Tem Dianne Reem ' Celia Scott Ella Sander Brooklyn Boulevard Task Force Lee Anderson Mark Holmes Dr. Duane Orn Bill Bartram Marty Iten Phyllis Owens Janis Blumentals Sharon McDonald Dianne Reem Ron Christensen Robert Mickelson Don Rosen Lee Cook, Jr. Dr. David Monson Frank Slawson ' Joan Gilbaugh Dave Nelson Perry Watson Charles Gustafson Uhde Nelson 1 City Staff ' Gerald Splinter, City Manager Brad Hoffman, Director of Community Development Diane Spector, Director of Public Works Sy Knapp, Former Director of Public Works Ronald Warren, Director of Planning and Inspections Mark Maloney, City Engineer ' BRW, Inc. Thresher Square Arijs Pakalns, AIA, AICP 700 Third Street So. Tony Heppelman, PE Minneapolis, MN 55415 Bill Weber, AICP (612) 370-0700 Candis Sheptak, AIGA Brooklyn Boulevard Streetscape amenities study i CONTENTS ' Page I. SUMMARY I II. INTRODUCTION 7 ' Background 7 Review of Previous Studies 7 III. INVENTORY/ANALYSIS 13 Existing Conditions 13 ' Forces / Issues 20 IV. PROJECT GOALS 31 V. FRAMEWORK PLAN 33 ' VI. STREETSCAPE ENHANCEMENTS 38 Streetscape Components 38 ' Recommended Streetscape Enhancement Plan 43 ' VII. SPECIAL THEME ELEMENTS 45 Design Theme Alternatives 45 Definition of Theme Elements 47 ' VIII. IMPROVEMENT PROGRAM 50 Improvement Staging 50 Improvement Cost Estimate 54 ' Brooklyn Boulevard Streetscape Amenities Study ii CONTENTS ' Page ' IX. REDEVELOPMENT PROGRAM 61 Redevelopment Issues 61 ' Redevelopment Case Studies 70 ' Redevelopment Plan 83 X. IMPLEMENTATION 89 ' Implementation of Streetscape Enhancements 89 ' Implementation of Development Guidelines 89 Implementation of Site Redevelopments 96 ' Brooklyn Boulevard Amenities Study iii FIGURES AND TABLES Figures Page ' Figure 1: Area Context 8 ' Figure 2: View Looking 14 Figure 3: View Looking 14 Figure 4: View Looking 14 ' Figure 5: View Looking 14 ' Figure 6: View Looking 15 Figure 7.• View Looking 15 Figure 8: View Looking 15 Figure 9: View Looking 15 Figure 10: Forces / Issues - Segment 1 16 ' Figure 11: Forces / Issues - Segment 2 16 g 8 ' Figure 12: Forces /Issues - Segment 3 17 Figure 13: Forces / Issues - Segment 4 17 ' Figure 14: Traffic Volumes 19 ' Figure 15: Bus Routes 21 Figure 16: Sidewalks / Trails 22 Figure 17.• Corridor Forces / Issues 24 ' Figure 18: Framework Plan 34 ' Brooklyn Boulevard Streetscape Amenities Study iv FIGURES AND TABLES Page Figure 19: Streetscape Configurations 39 Figure 20: Streetscape Lighting Alternatives 41 Figure 21: Intersection Treatment Alternatives 41 Figure 22: Recommended Streetscape Enhancements 44 Figure 23: Image / Theme Inventory 46 Figure 24: Recommended Theme Elements 48 ' Figure 25: Improvement Staging Plan 51 ' Figure 26: Redevelopment Patterns 63 Figure 27: Recommended Development Guilelines 63 Figure 28: Small Site Development Option 69 ' Figure 29: Mixed-Use Development Option 69 ' Figure 30: I-694 to 69th Ave. Area Special Study - Fvisting Conditions 70 Figure 31: I-694 to 69th Ave. Area Special Study - Alternative A 72 ' Figure 32: 1-694 to 69th Ave. Area Special Study - Alternative B 72 ' Figure 33: 1-694 to 69th Ave. Area Special Study - Alternative C 73 Figure 34: 1-694 to 69th Ave. Area Special Study - Alternative C 73 ' Figure 35: 69th Avenue Area Special Study - Forces / Issues 75 ' Figure 36: 69th Avenue Area Special Study - Concept A 75 Figure 37: 69th Avenue Area Special Study - Concept B 78 Brooklyn Boulevard Amenities Study v FIGURES AND TABLES Page Figure 38: 69th Avenue Area Special Study - Concept C 78 ' Figure 39: 71st Avenue Area Special Study - Forces /Issues 82 Figure 40: 71st Avenue Area Special Study - Concept A 82 ' Figure 41: 71st Avenue Area Special Study - Concept B 82 Figure 42: Corridor Redevelopment Plan S4 Tables Page Table 1: Cost Estimate - Improvement Components 55 Table 2: Cost Estimate - Development Phases and Summary 58 ' Table 3: Survey of Land Use Controls and Incentives 92 Brooklyn Boulevard Amenities Study vi I. SUMMARY summary The material presented in the Brooklyn Boulevard Streetscape Amenities Study can be grouped under four major categories: • Background and Framework ' Chapters I. Summary, H. Introduction, III. Inventory/Analysis, IV. Project Goals, and V. Framework Plan include background information, set the "stage", and establish the overall direction for Brooklyn Boulevard. ' • Public Streetscape Improvements Chapters V1. Streetscape Enhancements, VII, Special Theme Elements, and VIII. Improvement Cost Estimate identify and define all public Streetscape and specialty improvements and provide a cost estimate. • Private Redevelopments ' Chapter IX. Redevelopment Program defines guidelines for private developments and includes examples of prototypical developments as well ' as three redevelopment case studies. • Implementation Chapter X. Implementation outlines implementation strategies and steps for Brooklyn Boulevard. The summary includes an outline of major issues presented in each Chapter, as well as the key conclusions and recommendations regarding the Brooklyn ' Boulevard Streetscape Amenities project design and development. Introduction Brooklyn Boulevard, which serves many purposes -- commercial district, major ' roadway, gateway to the City, and intra-community link -- is undergoing a major ' Brooklyn Boulevard Streetscape Amenities Study I. SUMMARY ' transformation from a low-density residential street to a major commercial arterial with City as well as regional significance. The purpose of this study is to provide a definitive plan for shaping the image and the utilization of the Brooklyn Boule- vard Corridor over the next 20 years. A review of previous studies reveals that much of the thinking in the past regard- ' ing the future of the Brooklyn Boulevard Corridor is in line and consistent with the comments and recommendations of this study. Some of the major conclusions and recommendations of previous studies are: • Brooklyn Boulevard "... is a modern suburbarl American road designed ' for the automobile". • Development should be done in "... compact, functional districts which ' contain related uses". • Single-family residential uses should be converted to higher densities. • There is some potential for additional residential developments. ' • Employment opportunities for area residents should be increased through commercial development. • The office market is slow, but could strengthen in the late 1990's. • Attracting retail in the 1990's may be difficult, but restaurants and other ' hospitality sector uses might present an opportunity. ' Inventory/Analysis An examination of the existing conditions and the forces/issues which impact the ' project area reveals that there are three key areas which need to be addressed: • Traffic Circulation. Regional, as well as local, vehicular traffic circula- tion and access, which is one of the most critical elements for the com- mercial uses in the Corridor, needs to be improved -- especially in the area north of 1-694. Brooklyn Boulevard Streetscape Amenities Study 2 I. SUMMARY • Land Use Patterns and Development. The Brooklyn Boulevard Corridor contains many incompatible land uses and underdeveloped parcels which should be redeveloped. • Enhancements/Image. The Corridor has very few urban design or ' landscaping amenities and it lacks a clearly identifyable image and focus. Project Goals Five primary goals have been established for the Brooklyn Boulevard Corridor: 1. Favorable Business Environment ' 2. Well Defined and Screened Residential Neighborhoods 3. Comprehensive Area Access and Circulation System 4. Capacity to Accommodate Regional Traffic 5. Enhanced Visual Environment Framework Plan The Framework Plan defines the major components of the Brooklyn Boulevard Enhancement and Improvement Program. It establishes the general framework for all the other planning, design, and implementation activities in the Corridor. The major recommendations of the Framework Plan are: 1. Remove all single-family residential uses in the Corridor north of Highway 100. 2. Establish clearly defined land use districts with the central segment of the Corridor developed primarily for commercial uses. 3. Increase the land use intensities by creating denser, multi- or mixed- ! use developments. 4. Accommodate regional as well as local traffic by widening the Boule- vard north of 1-694 and by continually monitoring the rest of the Corridor. ' Brooklyn Boulevard Streetscape Amenities Study 3 1. SUMMARY 5. Enhance the general physical environment by implementing a Street- scape improvement program. 6. Develop special theme treatments in order to establish a distinct image and identity for the Corridor. Streetscape Enhancements The Streetscape Enhancements component includes the following recommended improvements: • A revised streetscape configuration to include landscaped medians and a single left-turn lane • A random pattern of boulevard trees • A distinct streetlighting system • Intersection enhancements which include transit shelters, where required, pedestrian lights, and landscaping treatments with a heavy emphasis on evergreen landscaping materials Special Theme Elements The key recommendation, in regard to special treatments, is to develop a special 1 theme for Brooklyn Boulevard. The recommendation is to adapt the "Earl Brown Heritage Center Theme" for Brooklyn Boulevard, as well as for other major thoroughfares in the City, in order to give the segment of Brooklyn Boulevard, which is in Brooklyn Center, a stron- ger identity and to reinforce the development of a more distinct and unified overall image for Brooklyn Center. ' Major components of the special theme element program are: • City Gateways at the northern and southern city limits ' • Freeway Entries at 1-694 and Highway 100 ' Brooklyn Boulevard Streetscape Amenities Study 4 I. SUMMARY • Corridor Markers at 58th Avenue and at 69th Avenue • A Focal Feature for the Corridor at 63rd Avenue Improvement Program The Improvement Program (1) defines Corridor segments which would receive similar treatments, (2) provides a preliminary cost estimate of the proposed im- provements, and (3) indicates anticipated staging of the improvement program. The general sequencing of the enhancement improvement program is from north to south with the section of the roadway, which coincides with the proposed Brooklyn Boulevard widening north of I-694, to be improved first. Redevelopment Program iThe redevelopment of Brooklyn Boulevard will require the combined efforts of the City and the private sector. The public improvement program and the private redevelop- ment efforts should be treated as a related set of tools which complement and reinforce each other. In redeveloping the Brooklyn Boulevard Corridor, three key issues need to be considered: • Size and Shape of Redevelopment Parcels. The parcels should be large enough to permit higher-density developments, reasonable access and circulation, and buffering for adjoining uses. • Program and Pattern for Redevelopment. The program for redevelop- ment should be tailored to the needs of the City and the adjoining neigh- borhoods. The pattern of redevelopment should be steered toward higher- ' density developments with buildings close to the street for easy access by pedestrians and bicyclists and in order to establish a stronger, more urban, ' frontage along Brooklyn Boulevard. • Development Guidelines. The Development Guidelines, outlined in this report, should be used to promote the overall goals for Brooklyn Boule- vard and to help reinforce a more urban character for the Corridor. Brooklyn Boulevard Streetscape Amenities Study 5 i i ii 1. SUMMARY The three case studies -- I-694 to 69th Avenue Area, 69th Avenue Area, and 71st Avenue Area -- are presented in order to illustrate the application of the planning I and design development guidelines and recommendations to actual situations along the Corridor. ' The Redevelopment Plan identifies proposed redevelopment areas along the Corridor and presents a recommended sequencing of the redevelopment program. Implementation ' The implementation of the Brooklyn Boulevard project will require three different programs: • Streetscape Enhancement Program. The implementation of the Street- scape Enhancement Program has already begun with the application for ' a $500,000 ISTEA grant for Streetscape and Special Theme Element improvements. Additional funding will need to be identified to complete the Streetscape Enhancement Program. • Development Guidelines. The Development Guidelines, which are outlined in this study, need to be refined and adopted into the Brooklyn Center Zoning Ordinance. The recommendation is to use a Brooklyn Boulevard Corridor Overlay Zone to implement the development guide- lines. • Site Redevelopment Program. The implementation of the Site Redevel- opment Program will require close cooperation between the City and private developers. The City needs to identify programs, such as TIF (Tax Increment Financing) or other developer incentives, to promote the desired design, developments, and improvements and to be able to participate actively in the redevelopment process. ' Brooklyn Boulevard Streetscape Amenities Study 6 II. INTRODUCTION Background The Brooklyn Boulevard study area (Figure 1) is located in Brooklyn Center between the southern and northern city limits. It encompasses the roadway as well as all immediately adjoining parcels. The Brooklyn Boulevard Corridor serves many purposes: ' • Commercial District. It is one of three key commercial districts in Brooklyn Center. The other two are Brookdale Mall and the Earl Brown Heritage Center. • Major Roadway. Brooklyn Boulevard is classified as an "A" Minor Arterial and it carries between 20,000 and 50,000 vehicles a day. ' • Gateway. It acts as the principal gateways to the City from the north and the south, as well as from the highways. • Community Link. It serves as a primary link within the community - ' especially between the north and south sides, which are divided by I-694. Over the years, Brooklyn Boulevard has been undergoing a major transformation from a low-density residential street to a major commercial arterial. Along with this change have come pressures to accommodate more traffic and to intensify the land uses along the Corridor. The purpose of this study is to provide a definitive plan for shaping the image and the utilization of the Brooklyn Boule- vard Corridor over the next 20 years. The intent is to create a practical document which will help provide realistic and ' comprehensive guidelines for the future development of the Corridor. ' Review of Previous Studies A number of studies have been conducted over the past fifteen years to address ' various aspects of the Brooklyn Boulevard Corridor. These studies have provided valuable insight into how the Corridor has been viewed in the past and what its ' Brookiyn Boulevard Streetscape Amenities Study 7 ,01.1 A.• » i 10,.1 ♦.• » y} a n • ,] { 11th A• » Z 1 ih ;3 ISM •.° r� ' At ILO 30 » < 3 prI A•• » ea ' Br oklyn Park • » • 861h A•• M • 1 �� 103 14 Ialh » IfU A.• to lOt Brooklyn 1 All to tot 81 All » ]] •Boulevard Maple !]• � l Corridor Groveo 0 152 : F �,�� Study Area t a ' Ind lra �� o € ] - s °° n•1,o° i ] ;. R P#itf x 61 94 y s Eapl• \ y tfifk �i6 t"y' �; y.. ]] Lak• ° r0 N. E ♦ e r. 'r alt#:« _► < f crystal s i s 1Q0 a AlrPW ass a u• O A • !•y a f t Lak• to • : NA1,H1 110. P O 11h••101 Schmidt J New' �.•. - ° Ake Hope ry tal I : 9 . I 9 Rob in* al* 1 oat �• Lak• }:• 1l']^ : ; t.: 2 A.. 57 • 23 Plymouth - + "h Minneapolis= Medicine ]] Lak• I•t .r...5...:: t 1 � r ° E t I` �i �58 M Icine 6016en 10. ake :. :I + 1.16 Valle 1 y Theodore >� c Sweeney- win a 52 J ", 1_ •• _ •� 't s• lrth J P rk ' Figure 1: Area Contest Brooklyn Boulevard Streetscape Amenities Study 8 it II II. INTRODUCTION future potential might be. The conclusions of the previous studies are generally consistent with the conclusions of this study and thus form a strong base for future actions. 1. Brooklyn Center Comprehensive Plan The first stud which addressed the Brooklyn Boulevard Corridor is the Y Y ' "Brooklyn Center Comprehensive Plan", completed in 1979 by BRW, Inc. The Plan identifies several key characteristics of Brooklyn Boulevard which are still applicable today: • Regarding the general image of Brooklyn Boulevard, it states: "It is a modern suburban American road designed for the automo- bile. [ Emphasis added I Its scale, speed, and nearby land uses also emphasize the auto over the pedestrian, the fast over the slow, the active over the passive, and the modern over the historic. Its r nature is split between that of a minor arterial road designed for moving autos through the City and a community commercial strip serving as the destination for numerous local shopping trips." • It also states that: "However, the danger exists that the appearance of Brooklyn Boulevard could deteriorate seriously and that traffic ' problems could become a severe aggravation." It also includes a number of specific development and circulation recom- mendations for the Boulevard. Some of the key recommendations are: • "Encourage the development of compact, function] districts which ' contain related land uses." • "Encourage commercial development and redevelopment in unified, functional patterns..." • Convert single-family residential uses to higher densities, except south of Highway 100. ' • Because traffic is a critical factor for Brooklyn Boulevard: "Up- grade the arterial road system as necessary so as to accommodate increased traffic demands ..." and widen Brooklyn Boulevard north ' of I-694. ' Brooklyn Boulevard Streetscape Amenities Study 9 1 II. INTRODUCTION The Plan states that Brooklyn Center has entered the second stage of its lifetime. The first stage was building up. The second stage, which needs to happen now, is stabilization and redevelopment. In its summary conclusions, the Comprehensive Plan recommends: ' • Establishing zoning controls, such as a minimum lot size of one acre, for redevelopment • Assisting private redevelopment efforts on a case-by-case basis ' • Acquiring critical parcels and "land banking" them in order to maintain development control over the nature and scale of redevel- opment. 2. Housing Market Study ' "The Brooklyn Center Housing Market: A Study of Trends and their Impacts on the Community was completed in May 1989 by Maxfield Research Group, Inc. The overall conclusions of this study are that: • The "... potential for additional household growth is constrained ' by the lack of available land." • The "... growth during the 1990's is estimated at about 200 ' households." • "Providing additional housing options for older Brooklyn Center ' residents will constitute a large portion of demand for new housing during the 1990's." ' • It also identifies "... a strong need for new rental housing to meet needs from a variety of groups, including young singles, empty- nesters and moderate-income persons" and "... up to 500 new ' general-occupancy apartment and rental townhome units could be added during the 1990's in Brooklyn Center." ' The Housing Study concludes with a list of policies/strategies for Brook- lyn Center including: • "Remove inappropriate uses (single-family housing) along Brooklyn Boulevard, and make sure existing and future land uses tBrooklyn Boulevard Streetscape Amenities Study 10 II. INTRODUCTION ' are consistent with the commercial orientation of this heavily trafficked thoroughfare"; and ' • "Work to increase employment opportunities to area residents through commercial development." ' 3. Commercial/Industrial Market Study A Study of Commercial and Industrial Development Trends in the Brooklyn Center Market Area" was completed in June 1991 by Maxfield Research Group, Inc. The overall conclusions of this study are that: ' • h office l strengthen in the late 1990's however, Teo ce market could , "Brooklyn Center will need to aggressively market its strengths and improve its image in order to attract office development." • The 1990's will be relatively difficult times for attracting new retail into small neighborhood centers, because the primary retail additions are occuring at regional malls. The one exception might be restaurants or other facilities related to the hospitality sector. • "Brooklyn Boulevard provides the best location for new neighbor- ' hood strip center developments. If sites were made available,... developers would view the area favorably, given the high traffic and visibility along the street." ' • "The City of Brooklyn Center should facilitate a long-term plan for redevelopment of the less cohesive segments of Brooklyn Boule- vard (in particular, the area south of I-694 to Bass Lake Road), which would consolidate retail users and small neighbor- hood office buildings, with shared parking and access. Single ' family homes on this thoroughfare should be removed to allow for new commercial development." 4. Redevelopment Study The latest plan is "The Brooklyn Boulevard Redevelopment Study", which was prepared in March 1993 by Dahlgren, Shardlow, and Uban, Inc. This study addresses the general Framework for the Corridor and includes a number of recommendations regarding: • Enhancement of the physical environment in the Corridor Brooklyn Boulevard Streetscape Amenities Study �� 11. INTRODUCTION • Improvement of traffic circulation • Creation of gateways • Upgrading of the facilities for pedestrian and transit users ' In addition, the Redevelo P ment Study contains a number of recommenda- tions regarding redevelopment sites and standards. Major redevelopment areas are identified at Brookdale Mall, 63rd Avenue, and at 69th Avenue. ' Many of the concepts and recommendations presented in the previous studies support the overall goals for the Brooklyn Boulevard Corridor and are incorporat- ed in the current study. �I ' Brooklyn Boulevard Streetscape Amenities Study 12 Ill. INVENTORY/ANALYSIS _ ' This section includes a detailed inventory and analysis of the project area. Although some of the inventory/analysis features have been documented in various previous studies, it is believed that a comprehensive summary of the existing conditions will be helpful, not only in understanding the current situation but also in future planning efforts. ' This Inventory/Analysis summary will serve as a reference guide regarding the existing conditions and forces/issues for ' current, as well as future, site-specific planning and decision- making. Existing Conditions The Brooklyn Boulevard study area includes that segment of Brooklyn Boulevard which is located within the Brooklyn Center city limits. The Corridor includes ' a major four-lane roadway and a large variety of land uses located along the Corridor. The photographs in Figures 2 through 9 illustrate typical existing conditions in the Brooklyn Boulevard Corridor. Figures 10 through 13 illustrate ' the existing roadway configuration, land uses, and zoning along the Corridor. The maps start at the northern end with Figure 10 and end at the southern end with Figure 13. ' General Corridor Characteristics ' In general, the Corridor has the following major physical characteristics: • Four-Lane Roadway. The four-lane roadway has varying median conditions including: no median south of Highway 100; a grassy median between Highway 100 and 58th Avenue; and a mixture of protected left- turn lanes and double, side-by-side, left-turn lanes in the rest of the Corridor. ' • Minimum Public Enhancements. The roadway right-of-way contains a limited amount of enhancements, such as street furniture, lighting, or landscaping. ' Brooklyn Boulevard Streetscape Amenities Study 13 'o !V 7- 17W7 :t ' Figure 2: View Looking South at 70th Avenue Figure 3: View Looking South at 69th Avenue AN g g t z� ' Figure 4: View Lookin g South at 66th Avenue r # 1 r Figure S: View Looking South at 62nd Avenue ' Brooklyn Boulevard streetscape Amenities Study 14 �[in ' Figure 6: View Looking North at 61st Avenue Figure 7: View Looking North. at 55th Avenue -- x Y I ' Figure 8: View Looking North at Highway 100 _ Iwo Figure 9: View Looking North at 50th Avenue ' Brooklyn Boulevard Streetscape Amenities Study 15 ° 8!rA o tS. � !.,,_ n v Ait � � I •v, r coo i eB ono�o cz P r$1',tes ���., 2 F3 my ,,..` ti ^r .\ p4r.)VSr In AL AI °®65� ti;.,�a 7�� �" 3 c ; `'``' � � �:•_h%,J �t '�': ��a'� '�.;:,c` �rte'�. u ' Al • 334 � t lit n ii Gap \. a ��t�. oo• � ' \ ( 1 pp c ', _ L St low IWO $ Ab V c fD 8• � o.'. � J _ , 1 o- - yyp. nil "I l � 4�'' rd°. '.l-.� -, Q � �' p p try ���•.. _ f-^ al.� . n 5 w 1 Ir I,L 3� � ' , .. it •, f '�, x. � ,�'.'i"° • n I .. \ ��t1 Nna do °qp°Op�os io1% RV rav 4111 Tie y r t � QQo a� , Z fl,Ae ove { jJ NII 9 - Ave. � • � b 111. INVENTORY/ANALYSIS • Overhead Utilities. The Corridor, except for a short segment at Highway ' 100, includes overhead power lines which parallel or cross the roadway. • Mixture of Land Uses. Except for a few segments where the land uses ' are relatively uniform, most of the Corridor contains a wide variety of land uses juxtaposed along the roadway. The land uses range from single- family residential to a regional shopping center -- Brookdale Mall -- and include: medium-density apartments; public and semi-public institutions such as schools and churches; office buildings; and a variety of commer- cial uses from home businesses to large automobile dealerships. The appearance and upkeep of the properties along the Corridor ranges from well-developed and very well-maintained to dilapidated, especially Iwhere properties are vacant or incompatible with adjoining uses. • Varying Edge Conditions. The landscaping and urban design treatments and appearance of the properties along the Corridor also vary greatly ranging from the well-landscaped to devoid of landscaping. Circulation Systems Brooklyn Boulevard is a key circulation route for Brooklyn Center as well as for the northwest suburbs of the Twin Cities. It serves as a major intra-city link for Brooklyn Center as well as a primary access route to I-694 for the northwest suburbs. Besides vehicular circulation, Brooklyn Boulevard also serves as a travel route for pedestrians and bicyclists. Vehicular Circulation One of the key features and issues in the Brooklyn Boulevard Corridor is vehicular traffic circulation. Existing vehicular traffic volumes on Brooklyn Boulevard, which is classified as an "A" Minor Arterial, range from 18,000 vehicles a day south of Highway 100 to almost 47,000 vehicles a day just north of I-694 (Figure 14). The projections for the Year 2010 are that the volumes will increase to 22,000 and 54,000 vehicles a day, respectively. ' Besides through traffic, Brooklyn Boulevard also has to accomodate a large number of street and private property access points. Figures 10 i through 13 illustrate all the access points to Brooklyn Boulevard from single-family residences and other uses along the Corridor. Brooklyn Boulevard Streetscape Amenities Study is I - — — �— ----- :rr _a?oonL IN RAW aL te ' r '•, t , 3 \,�F' 7 - ? .. PA- NE4 ,.aMF PARM i _ s °ALAI; 4KE MOW) ' — 9,300;-64iii:%e- `_ I.(fOb _r s 1 - 1 (11,()0,0) (12,0011) O✓ x ----�— Gird Ace. 0(► — ��'�. 1 1�i 6.• 411? 1 I � ;,.,,. i -- $4,1$00 58th Ave. L {.4,000) \^ � L 16.1111► L---�% / ' CAKE I � J I.. Legend Existing D•ri)y Traffic 1 �J S J ---2010 Drily Traffic CJTY OF QB'iJSDAL-E • :.� �!� - Figure 14: Traffic Volumes Brooklyn Boulevard Streetscape Amenities Study 19 III. INVENTORY/ANALYSIS Transit, Bicyclists, and Pedestrians jBrooklyn Boulevard is currently served by Bus Routes 5, 14, 81, 94G, and 94K (Figure 15). None of the bus routes is continuous along Brooklyn Boulevard and there are very few provisions, such as benches or shelters, for bus patrons. The facilities for bicyclists and pedestrians (Figure 16) include sidewalks along both sides of the roadway and a short designated bicycle route along the west side of Brooklyn Boulevard between 66th and 68th Avenues. The primary bicycle trails in Brooklyn Center are located east of Brooklyn Boulevard, along Xerxes Avenue and the Shingle Creek greenway system and west of the Boulevard along Upper Twin Lake and Lee Avenue. Forces/Issues The Forces/Issues Analysis is one of the most critical steps in the planning and design process. Correct identification of key Forces and Issues is a basic re- quirement for finding appropriate solutions. Another reason for documenting the Forces/Issues is that, as the planning process proceeds over the next 20 years, circumstances will change and recommendations included in this study may need to be reevaluated. In such situations, the Forces/Issues Analysis presented here, will serve as base information for rethinking and redirecting the Corridor redevelopment process. Forces are existing physical features or conditions which have a bearing on what could happens in a project. Issues are trends or characteristics which need to be considered in the planning process. Forces and issues can represent either an opportunity or a constraint. Sometimes, through creative planning, design, or funding, a constraint can be turned into an opportunity. For example, the requirement for a stormwater storage pond might be considered to be a constraint and the pond relegated to the most undesirable part of a site. On the other hand, the pond requirement could be looked upon as an opportunity and, with the proper design, become an open space focal feature and a key Brooklyn Boulevard Streetscape Amenities Study 20 �► 711-- i sMww'NOW� Shin i 1-6)4 65th Ave. rM---® —tract` • I _ I %* 63rd 63rd Ave. � 1 iI t `fit awn 1 � 58th Ave. , now IM , 0 J < Legend C ` (.alai Bus Routes v ® Express Bus Routes Bus Route Vumbcr �® © J 00 1000 :OW � Figure 15: Bus Routes Brooklyn Boulevard Streetscape Amenities Study 21 ..... .•........owns e, . 0 o •• BEER# ♦ • o � � o ♦ • 69th Ave. � ' r"••■ ••■ ♦•••n•n• io❑❑o❑❑o❑❑oo❑❑a❑oo❑❑oao❑00000❑❑° 0 • 0 _ o 000000 ' 0 7 ° �♦ o ♦♦ 169+ 00 ♦♦i 0 0 ♦♦ o ♦ 0000000000080 ° ♦♦� 0 ••• p °00000000000 ♦♦•i o p • 0 0 ~�~♦ 0 0 o • • 63rd Ave. ❑❑o❑ ❑ o ° ❑o o° oo❑ 000❑❑❑❑❑o❑❑ o❑❑oo 0 0 • o � • I • r - i~°o♦♦ • • o p a a c ♦.rra♦♦ p ■ 0000°❑❑❑❑ao❑❑0o0p0p0o❑❑❑❑opsau❑° i °°0000 ❑ 0 ❑ o °� • 0 0 ■ 0 O ■' O ■ 0 58th Ave. JC ... 0 nor a ❑ p o o b ° ° i o°❑❑0O❑❑❑a ' o0000000naeoob %0000 .♦ . p ❑ o • ♦♦ 1 Op0 ° 0 •n 0 .♦� 00° ❑ 000000 - 0 � 0° 0 O°00♦..0p0 0 % °O ❑ pp° o O Oo0 i ■ 0 0 0 opp00o°O ■ o a • 0 0 o° o r 0 °0 0 0 0 0 O°O 0 0 0 0 0 ❑ ° 0 00°❑0000❑❑❑°0000000 °00 ` Legend ❑ 0 ,S. ❑ 0 •■•• Existing On Street Trail 0 ■..on• 0 ■ 0000 Proposed On-Street Trail o Boom Existing Off-Street Trail 0 ❑ re ❑c❑❑ Proposed Off-Stet Trail • 0 r Sidewalks 0 00000cooc000ma"o♦ 0 O O O .. O Henn • op°BOO • n •op°o o p0• 0 O°°pOO° o o wo yaw z000 i._�. Figure 16: Sidewalks / Trails Brooklyn Boulevard Streetscape Amenities Study 22 III. INVENTORY/ANALYSIS element of a project. The point is that, as the Brooklyn Boulevard planning and redevelopment process proceeds, all forces and issues need to be considered and, whenever possible, consideration given to turning constraints into opportunities. The Forces/Issues for Brooklyn Boulevard are summarized in terms of overall, corridor-wide impacts as well as detailed area impacts. 1 Overall Corridor Forces/Issues The Brooklyn Boulevard Corridor is in a transition phase from being primarily residential to predominantly commercial. This transition, so far, has occured in a piecemeal fashion and on an individual lot-by-lot basis. Following are the primary Forces/Issues (Figure 17), which apply to the Corridor in general: • Regional Commercial District. The Brooklyn Boulevard Corridor, ' which includes the Brookdale Mall at its southern end and a number of large automobile dealerships at its northern end, serves as a regional commercial district. This regional significance is an important attribute, since it represents a large commercial tax base for the City and, by attracting regional shoppers, it presents an opportunity to develop and support additional City and neighborhood-oriented commercial facilities. ' • City/Neighborhood Service Center. Besides the regional significance, Brooklyn Boulevard also serves as a major service center for the City of Brooklyn Center and many of its residential neighborhoods located along the Corridor. The Boulevard is ideally suited to provide commercial services to the neighborhoods in the western half of the City. However, ' the commercial services are poorly organized and grouped and do not take advantage of this potential. • Regional Circulation Route. The Boulevard serves as an access route from the northwest suburbs to 1-694 and to Brookdale Mall. The large traffic volumes on Brooklyn Boulevard present a problem as well as an opportunity. The problem is that the traffic is projected to reach 54,000 vehicles a day north of I-694 by the Year 2,010, which is beyond the carrying capacity of the existing four-lane roadway and, therefore, the ' roadway needs to be widened. The opportunity is presented by the potential to "capture" these potential customers and, in conjuction with the roadway widening, redevelop a segment of the Boulevard. Brooklyn Boulevard streetscape amenities study 23 r • r —Low Density Residential te • Proction (?) Itrtgh-DCn+it� } Rtsldtntlui -Church jF DCitsity C a._ f } velopnl l Offict Ms school �S- n-Den.ity Redevelopment(?) !® � yidential ♦J Com,nercial!lfode�� Cyy 69th Ave. �G � o MS JiaoO e� Low-Dens ity Residential J Redevelopment(?) Conversic, otection(?) , Conuucrcial Auto RCtaL ' Auto Retail \ Major Entry � DO I 0 � _Low.Den +I Protection land Use(?) Open Space Ride/Redev Resia4nUal--.___ - n e� \ Pond/Park&Rlde/Redevebpti+�nt(?) ; � ___cNGte 0Op sd,voi 4 office -- 0 Re"sidem alty— �J Rj! Major Envy 0• t1 Redevelo fient(?) Low-Density_R.$nienU al -- ----ate P .. 63rd Awe. Conversion/ ec 10 (?) t mercial:Wide 0 '� �mm caleJaae 0000 moot_ scam entert rradsy,cem .-y'1'ownCcntcrfl Cununerciai 0 1 `�lLow Density tdentia �l 0 Auto Retail fAnversbn/P tectio nsity Residential >0 O O > y l ,mlon/Protection(?) Retail/office � - office Q High D—ity Underutilize l Site Resldrinti s _ ,-Density Residential �� p ,9•nversion/Protection(?) Remil/bffice 0. D Church ,- Office Snail Site a Lou-De Residential ,,onversiio m ace on(?) yne Ave. -- c�w-De ity Res,dential d U Ghangt(?)''—�" M r Rrt y 1 aj,a by f is 1 r �n � � QPo OM c ,•t,w- n %Residential m t o "Protection Low•Den! > "esidential: y.. lAnd L1eC nge(?) i `4jor Entry --- -- --- ---- -- 1` R 'A ual R" lewfoplWat(. icy Resid—tial. \�. Gattwall it t `op ���• �..�--�.-• 1 Hone . .-1 G 700 000 3000 1 Figure 17.• Corridor Forces /Issues Brooklyn Boulevard Streetscape Amenities Study 24 111. INVENTORY/ANALYSIS In order to accommodate the projected volume of traffic, Brooklyn Boulevard needs to be widened to six lanes including additional turn lanes. Hennepin County, in cooperation with the City, has obtained an ISTEA (Intermodal Surface Transportation Efficiency Act) Grant to widen ' Brooklyn Boulevard from approximately 64th Avenue to 70th Avenue. The widened roadway will accommodate the projected traffic volumes and it will maintain the access to the regional retail facilities. Planning for the widening has recently started. Land acquisition for the widening will commence in 1995 with the actual roadway reconstruction to begin in 1996. Since the Boulevard widening project will require some land acquisition along the north side of the roadway, this presents the opportunity to 1 redevelop some of the properties in order to improve overall area circula- tion and access to the parcels and to increase the utilization of the ' properties. • Intra-City Circulation Route. Brooklyn Boulevard also is an Important local circulation route as well as a link across I-694. The Boulevard interconnects many of the City's neighborhoods and it provides the only crossing of I-694 in the western half of the City. ' Brooklyn Boulevard, in conjuction with 58th Avenue, Shingle Creek Parkway, and 69th Avenue, could serve as an internal ring road for Brooklyn Center. This loop would connect most of the City neighbor- hoods as well as the majority of civic and commercial facilities. • Uncoordinated and Incompatible Land Use Patterns. The Brooklyn Boulevard Corridor has been undergoing a transformation from predomi- nantly residential to a mixture of various land uses. The interjection of new retail and office developments in various locations along the Corridor on a parcel-by-parcel basis has resulted in a checkerboard pattern of single-family residential, medium-density residential, institutional, office, and service and retail commercial uses. The primary land use issue, because of high traffic volumes and the changing character of the Corridor, is that single-family residential uses are no longer an appropriate land use for Brooklyn Boulevard north of Highway 100. In addition, the many curb cuts required for single-family 1 access are detrimental to the overall traffic circulation in the Corridor. Brooklyn Boulevard Streetscape Amenities Study 25 III. INVENTORY/ANALYSIS A second major issue is the lack of contiguous, clearly identifiable, well- defined commercial districts. The lack of definition results in weaker ' commercial developments and in poorly defined identity for the Corridor commercial uses. • Underutilized Parcels. Many parcels along the corridor are partially vacant or poorly utilized and low-density developments, such as single- family residential uses, do not take advantage of the commercial potential and exposure that the Corridor offers. • Excessive Number of Access Points. The large number of single-family homes and small commercial developments along the Boulevard require an extraordinary amount of curb cuts and access drives. The result is a reduced level of service for vehicular traffic and many dangerous conflict points along the roadway. ' • Limited Urban Design/Landscaping Enhancements. The public right- of-way contains very few urban design amenities, such as benches, litter receptacles, or special features, and there is very little landscaping in the street boulevards and the existing medians. Also, the overhead power line, which is located along most of Brooklyn Boulevard, adds clutter to the visual environment. The lack of amenities and landscaping and the ' overhead power line contribute to a highly utilitarian and lackluster appearance for the Corridor. • Lack of Image/Focus. The Corridor contains very few landmarks or highlights, except for some of the larger commercial buildings and signs, such as those at Brookdale Mall and the automibile dealerships. The ' Corridor also lacks identification and a sense of place. One can drive through the Corridor without truly understanding which City one is in or ' how the Corridor relates to the rest of the Brooklyn Center. In summary, because of its central location, underutilized sites, and the large number of people passing through the Corridor each day, the Brooklyn Boulevard Corridor has a lot of potential to become a well-coordinated regional, City, and neighborhood-oriented commercial district, but due to poor land utilization, uncoordinated developments, and lack of enhancements or a distinct image, it is not taking advantage of the opportunities. Brooklyn Boulevard Streetscape Amenities Study 26 III. INVENTORY/ANALYSIS i Detailed Area Forces/Issues ' Following is a description of the detailed Forces/Issues related to specific locations or parcels along the Corridor. The descriptions begin at the north end ' and finish at the southern City limits. The detailed Forces/Issues are illustrated in Figures 10 through 13. A potential landscaped median is indicated on the Forces/Issues maps. These medians will be discussed and referred to in section VIII. Improvement Program. North City Limits to 71st Avenue (Figure 10) • The land use and area access for the vacant parcel north of Shingle Creek needs to be reevaluated. ' • Gateway at Shingle Creek? Pedestrian crossing for pedestrian trail along Shingle Creek? ' • Single-family uses adjacent to Brooklyn Boulevard at Wingard Lane. • Single-family use, undeveloped parcels, and small residential "pocket" along 71st Avenue. Redevelopment potential? ' • Underutilized corner of Willow Lane School site. ' • Proposed off-street trail crossing at 71st Avenue. • Overhead power line along east side of roadway. 71st Avenue to 69th Avenue (Figure 10) • Small underutilized parcel on Brookdale Methodist Church property. • Future office expansion and parking supply/demand status for office buildings? • Mixture of small apartment building, single-family houses, and small ' office building just north of 70th Avenue. Redevelopment potential? • Underutilized sites on St. Alphonsus Church property. ' Brooklyn Boulevard Streetscape Amenities Study 27 III. INVENTORY/ANALYSIS • Required widening of Brookdale Boulevard on east side will impact area north of 69th Avenue. Redevelopment potential? Size of redevelopment site and buffering for adjoining residential uses? Access? ' • Single-family uses along west side, north of 69th Avenue. Redevelopment potential? Size of redevelopment site and buffering? Access? Status of Phillips 66 service station? • Overhead power line along east side of roadway. 69th Avenue to I-694 (Figure 10) • Required widening of Brookdale Boulevard on east side will impact area south of 69th Avenue. Redevelopment potential? Reconfiguration of automobile dealer parcels? Access? Need for a stormwater storage pond in this area? ' • Proposed off-street trail along south side of roadway. • Potential for major entry statement at I-694 • Image/Appearance/Safety of pedestrian/bicyclist paths under I-694 needs ' to be improved. ' • Overhead power line along east side of roadway. I-694 to 63rd Avenue (Figure 11) • Proposed stormwater storage pond and MTC Park-and-Ride Facility west of Brooklyn Boulevard, just south of 1-694. ' • Single-family uses along east side, south of I-694. Good proximity to and visibility from I-694. Redevelopment potential? Access limitations because of ramps to and from I-694. • Redevelopment potential of the Builder's Square site? Future "Town Center" development? • Single-family uses along west side, north of 63th Avenue. Redevelopment potential? Size of redevelopment site and buffering? Access? Brooklyn Boulevard Streetscape Amenities Study 28 111. INVENTORY/ANALYSIS • Overhead power line along east side of roadway. 63rd Avenue to 58th Avenue (Figures 11 and 12) • Single-family uses along the east side, south of 63rd Avenue. Redevelop- ment potential? Site size? Access? Future "Town Center" development? • Single-family uses along the west side, from north of 61st Avenue to Admiral Lane. Redevelopment potential? Site size? Access? • Underutilized site around funeral home at 60th Avenue. Use/redevelop- ment? • Impacts on residential properties along 60th Avenue from through-traffic to Little League ballfields. ' • Impacts from shortcutting traffic on residential _properties along 59th Avenue. • Single-family uses along the west side, north of 58th Avenue. Redevelop- ment potential? Site size? Access? ' • Overhead power line along east side of roadway. ' 58th Avenue to Highway 100 (Figure 12) • Parking supply/demand status, complex signs, image of commercial area ' south of 58th Avenue? • Land use/redevelopment of single-family strip along the west side of frontage road? • Screening/buffering for residential area along west side? • Landscaping of existing median? ' • Overhead power line along west side of roadway. Highway 100 to southern city limits (Figure 13) ' • Potential for major entry statement at Highway 100. Brooklyn Boulevard Streetscape Amenities Study 29 III. INVENTORY/ANALYSIS • Stormwater storage pond at the Highway 100 interchange? ' • Potential new connection from the Highway 100 southwest frontage road to Brooklyn Boulevard. • Underutilized site on the east side, north of 51st Avenue. ' • Redevelopment potential of the greenhouse site west of roadway? • Through traffic to Minneapolis on 51st Avenue. ' • Redevelopment potential of small greenhouse site east of roadway, south of 51st Avenue. ' • Shortcutting traffic on 50th Avenue. This situation may be improved with the new frontage road connection. • Gateway north of 49th Avenue? Brooklyn Boulevard Streetscape Amenities Study 30 i IV. PROJECT GOALS ' Following is a set of goals for guiding the development of streetscape improve- ments, urban design enhancements, development guidelines and standards, and redevelopment of the Brooklyn Boulevard Corridor. ' The goals represent a set of interrelated end results which the City of Brooklyn Center wishes to achieve in the Brooklyn ' Boulevard Corridor. The desired end results will be achieved only if the goals are utilized consistently and comprehensively. All redevelopment proposals should be evaluated to assess how well they satisfy, or fit in with, each and every one of the established goals. This does not mean that each development needs to satisfy each goal one-hundred percent. It does mean, however, that development proposals should be evaluated on how well they satisfy the majority of the goals, or whether there are ways to mitigate or improve the proposed developments to achieve the desired end results. 1. Favorable Business Environment ' The Brooklyn Boulevard Corridor should have a setting which supports desirable existing businesses and helps stimulate new commercial growth ' and redevelopment. Brooklyn Boulevard is the primary commercial corridor in Brooklyn Center. Sound commercial developments along the Corridor provide the Community with commercial services and an expanded tax base. A favorable business setting needs to be maintained in order to keep existing ' businesses and attract new ones. Desirable commercial developments means all commercial uses which: are permitted under the current zoning ordinance, provide services for the Community or the adjoining neighborhoods, support the financial objec- tives of the City, and are not detrimental to other corridor goals. 2. Well Defined and Screened Residential Neighborhoods ' Viable residential neighborhoods along or adjoining the Brooklyn Boule- vard Corridor should be well defined and screened from adverse impacts. ' Brooklyn Boulevard Streetscape Amenities Study 31 IV. PROJECT GOALS Viable residential neighborhoods means residential areas or districts which are located in a suitable residential environment, are not impacted by ' adverse conditions, and are not a blighting influence on the surrounding residential districts or other uses along the Corridor. The residential neighborhoods, whether low-density or multi-unit, should be well defined and screened from adverse impacts. Since high-volume traffic arteries are not recommended environments for single-family uses, portions of Brooklyn Boulevard which carry large volumes of traffic are not suitable settings for single-family dwellings. ' 3. Comprehensive Area Access and Circulation System The Brooklyn Boulevard circulation system should accommodate all preferred modes of transportation and should provide convenient access and circulation for all desirable uses along the Corridor. ' Preferred modes of transportation includes means of transportation, besides automobiles, which the Community wishes to support, such as buses, trolleys, vans, bicycles, and pedestrian circulation. 4. Capacity to Accommodate Regional Traffic Brooklyn Boulevard should be able to accommodate regional traffic circulation needs through the Corridor. ' Regional traffic using the Brooklyn Boulevard Corridor provides exposure and patrons for the corridor businesses. It is important to accommodate ' regional traffic needs, in order to minimize congestion and negative impacts on local traffic and to maximize the potential for access to local businesses. 5. Enhanced Visual Environment The visual environment along Brooklyn Boulevard should help project a positive image for the Corridor and the City. The Corridor should serve aesthetic as well as functional needs. An enhanced Brooklyn Boulevard image and appearance will not only help improve the business environment along the Corridor; it will also make ' the City a more enjoyable place in which to live and do business in. Brooklyn Boulevard Streetscape Amenities Study 32 i V. FRAMEWORK PLAN 1 The planning for the Brooklyn Boulevard Corridor was conducted at two scales: i (1) at a corridor-wide scale; and (2) at detailed scales for streetscape enhance- ments, special theme elements, redevelopment guidelines, and selected site redevelopment case studies. This section presents the recommended Framework ' Plan for the Corridor. The detailed plans are presented in the following sections. The recommended Framework Plan represents responses to the forces and issues ' identified in the analysis and to the goals established for the Corridor. The recommendations included in the Framework Plan and the detailed plans are meant to be general guidelines for setting direction and initiating action. They ' are not intended to be final designs which should be implemented exactly as conceived. Circumstances change and therefore plans need to change. No plan should ever be considered absolute or final. Since this plan may be implemented over a period of 20 years, elements con- structed at the end of this 20-year period may require modification from the ones i installed earlier. The hope is that even if details are changed, the major concepts recommended in the Framework Plan will be preserved and will help shape the overall form and image of the Corridor. The recommended Framework Plan (Figure 18) identifies the key concepts for redeveloping Brooklyn Boulevard. Following is an outline of the major recom- i mendations for the Corridor, which are discussed in greater detail in the rest of the report: 1. Remove Single-Family Residential. All single-family residential units north of Highway 100 which abut the ' Brooklyn Boulevard right-of-way should be removed. 2. Establish Clearly Defined Land Use Districts. Developments should be grouped to establish districts with a predominant character and purpose and with appropriate edge treatments to buffer the ' districts from the adjoining single-family residential uses. In general, the Brooklyn Boulevard Streetscape Amenities Study 33 Ci[`" Trail Along c.:icway SfKr%gk--Creels Density Residential Church School O 11 h.UettaiN ivldenli:J "'" Q d' School NCighborhovd Q a COirtmerc ial 11's e 11 All.�oc-sca©oeaa 000 ota wP.O � r' Corridor -'rail Along Marker ,p }If(Mklyn A.I.Retail BonleVard ay Reail — Major Entry O 9 OO E 0 Conunercial O� ' open Spec/Pond/Pais&Ride or COmotereial U 0 0 school Hiph-Density "Town Ccn[� Neiahborhwtd O RexidentUl C<wtsaemi.LUse Node Major Entry ' High-onsi�RcYMcntial TotrnCcaur"Q o0 Ord A.•c. Q ==al Freture� �am o®vr�oeea °a eegeameevea eaeso �mmm�Qm trail>>.arcnt r 3 Q / "Town Cenn'.r9 Q Il Q High-pe[ssity d 0 Residential 9 Q Conunercial---- tircKddyn Ce[�rr----- Ring Road ..O O ^ Q Off Culttmercirl� hhorhnal S lath a rtihunercial Node Pocy�ODCtMDPIIPDDII xigh-Density 0 Residential Major Pntry 0 �r Mal O c o one 0 6� s• ' �q High-Dctteity a - 0 _ . $RaWentlal � �,". Major Entry m4 ?r1 C I �J nIR)t pens+ey�.._ –' RegidnNial 4 High-Density Residential Legend o -Predominant �'i�� Land Use District - ity Rcsidentiod -Existing Use 0. 1iM'tOt"°ul to Remain city Gateway -Proposed j Redevelopment ao� Figure 18: Framework Plan Brooklyn Boulevard Streetscape Amenities Study 34 V. FRAMEWORK PLAN following land use groupings or districts are recommended for the Brooklyn Boulevard Corridor: • Commercial Core. The central segment of the Corridor between 58th Avenue and 69th Avenue should be predominantly commer- cial. Within this commercial core, neighborhood commercial nodes should be established at 58th Avenue, 63rd Avenue, and 69th Avenue. The 63rd Avenue commercial node could be developed as a "Town Center" and/or as a focal area for the Corridor. • Medium-Density Residential Edge Segments. The southern edge segment, between Highway 100 and 58th Avenue, and the northern ' edge segment, between 69th and the northern city limits, should be predominantly medium to high-density residential. Brookdale Mall is a major exception in this district. • Single-Family South of Highway 100. The segment south of Highway 100 should remain, for now, predominantly single-family residential. The purpose for establishing predominant use districts is to consolidate fdevelopments into more compatible land use patterns and to strengthen the commercial core area. The intent is, instead of allowing commercial developments to occur all along the Corridor, to consolidate most of the commercial uses, as much as possible, in the core area in order to establish a clearly identifiable and marketable core retail district. It is understood that some mixing of uses will occur and that none of the districts will be purely one use or another. Some mixed-use or multi-use ' developments, in fact, may be desirable, but the key idea here is "predom- inant use", meaning that the largest proportion of uses should fit the overall district classification. 3. Increase the Land Use Intensity. ' Development and land use intensities should be increased in the Brooklyn Boulevard Corridor in order to take advantage of the favorable location and access characteristics of the Corridor and to increase the commercial ' tax base of the City. Every effort should be made to promote the ' Brooklyn Boulevard Streetscape Amenities Study 35 V. FRAMEWORK PLAN development of higher-density retail, office, and residential uses in the Corridor. 4. Accommodate Regional as well as Local Traffic. The roadway should be monitored and, if necessary, upgraded to accom- modate changing regional as well local vehicular traffic demands. Access is one of the key ingredients for successful com- mercial developments and therefore, if Brooklyn Boule- vard is to become a viable and vibrant commercial district, a good roadway system needs to be maintained. The current widening project of Brooklyn Boulevard north of I-694 needs to be completed, and continuous evaluations of the rest of Brooklyn Boulevard should be conducted on an ongoing basis to quickly identify ' traffic problems or issues and to correct them as soon as possible. Another way in which traffic operations could be improved is by reducing i the number of curb cuts and driveway access points. This should be accomplished through the removal of single-family residential uses and through the elimination or consolidation of driveways as properties are ' upgraded or redeveloped. Another component of the circulation system is paths for pedestrian and bicycle traffic. Although Brooklyn Boulevard itself is not viewed as a primary pedestian or bicyclist route, pedestrians and bicyclists need to be ' accommodated. A sidewalk should be provided on both sides of Brooklyn Boulevard and the segment between 66th Avenue and 69th Avenue should include an off-road bicycle path on the west side of the roadway, in order to complete the north-south trail system which is located along tipper ' Twin Lake and Lee Avenue. 5. Enhance the General Physical Environment. The physical environment enhancement program should include removal of unsightly elements, such as overhead power lines, and installation of comprehensive urban design and landscaping treatments including transit shelters, benches, litter receptacles, general landscaping, and special ' intersection improvements. The overall enhancement program should also ' Brooklyn Boulevard Streetscape Amenities Study 36 V. FRAMEWORK PLAN include site improvements on private properties in the Brookly Boulevard ' ,Corridor. 6. Develop Special Theme Treatments. Special theme treatments should be developed to provide the Brooklyn Boulevard segment in Brooklyn Center with a unique identity and image. This will help upgrade the overall appearance of the community and it will assist in improving the identity of the Brooklyn Boulevard commercial district. The special theme elements should include gateways at the ends of the Boulevard, entry treatments at Highway 100 and at I-694, corridor markers at 58th Avenue and at 69th Avenue, and a major focal feature in conjunction with the proposed "Town Center" at 63rd Avenue. As part of the special identity program, the central segment of Brooklyn Boulevard between 58th Avenue and 69th Avenue, along with segments of 58th Avenue, Shingle Creek Parkway and 69th Avenue, should be designated as the "City `Ring Road". The purpose of this would be to create an easily identifiable link between the major City civic and com- mercial facilities and to promote a special, City-centered circulation system, rather than treating major roadways merely as thoroughfares through the City. ' Brooklyn Boulevard Streetscape Amenities Study 37 VI. STREETSCAPE ENHANCEMENTS The streetscape enhancement plan addresses four items: existing elements, streetscape configuration and landscaping, streetscape lighting, and street furniture and special features or treatments. In developing the streetscape enhancement plan, a number of options and alternatives were investigated. Following is a discussion of each of the streetscape components as well as the recommended Streetscape Enhancement Plan. Streetscape components Existing Elements ' The existing streetscape contains very few urban design elements which would impact the development of the streetscape plan. The one item which has a significant impact is the existing overhead utility power lines, which extend virtually for the whole length of the Corridor. The power lines detract from the visual appearance of the Corridor and they restrict the planting of large street trees. The recommendation is to remove all overhead power lines in the Brooklyn Boulevard Corridor. ' Streetscape Configuration and Landscaping ' The streetscape enhancements can be arranged in a number of different configura- tions. Items to be evaluated in streetscape configuration include: side- walk/boulevard location, street light location, street tree arrangement, and median ' configuration. Figure 19 illustrates two options for streetscape configuration, which have the following characteristics: ' Alternative A • The landscaping boulevard is located adjacent to the curb with the sidewalk next to the street right-of-way. ' • The boulevard trees are evenly spaced along the Boulevard. • The street lights are located in the landscape boulevard. ' Brooklyn Boulevard Streetscape Amenities Study 38 - r A Alternative A Y ^y 1 '- x a > � �.. •�� ��10'Land-�y�in�Gascnx nt �� � f .' Alternative B Figure 19: Streetscape Configurations Brooklyn Boulevard Streetscape Amenities Study 39 VI. STREETSCAPE ENHANCEMENTS • A landscaped median is introduced where left-turn lanes are not required and the median is configured with two back-to-back turn lanes. ' Alternative B ' • The sidewalk is located behind the curb with a narrow landscaping strip adjacent to the street right-of-way. • The boulevard trees are grouped in clusters. This creates a more interest- ing streetscape and it minimizes uneven appearances where trees can not be planted because of driveways, or if trees get damaged or diseased and ' have to be removed. • The street lights are located behind the curb. In this alternative the street ' lights could be located behind the sidewalk along the property line. This would require a longer arm for the street lights; 0 A landscaped median is introduced where left-turn lanes are not required. The median is configured with a single left-turn lane. iThe recommendation is to use a combination of the two options including: landscaped boulevards behind the ' curbs; sidewalks adjacent to property lines; landscaped medians (the landscaped medians are indicated in Fig- ures 10 through 13); clustered groupings of trees; and single left-turn lanes. In addition to the general street landscaping, a number of other areas should receive special landscaping screens and treatments. The areas identified for special treatments are between Highway 100 and 58th Avenue, where special landscaped treatments should be used to enhance the overall corridor image and screen the residential areas on the west side of Brooklyn Boulevard. Streetscape Lighting For streetscape lighting a number of alternatives and designs were evaluated (Figure 20). Two types of lights were considered: street lights and pedestrian lights. ' • Street Lights. The two major choices to make in selecting street lights are the design of the light fixture and the light spacing. A key consider- ation in deciding on street lights is the cost and the maintenance of the ' Brooklyn Boulevard Streetscape Amenities Study 40 i o:. 1 -- - - - - A B (: A B (Existing) (Existini;) Street Lighting Options Pedestrian Lighting Options ' Figure 20: Streetscape Lighting Alternatives 1 Intersection Option A Intersection Option B 1 Intersection Option C Intersection Option D Figure 21: Intersection Treatment Alternatives Brooklyn Boulevard Streetscape Amenities Study 41 VI. STREETSCAPE ENHANCEMENTS ' fixtures. The City anticipates that the street lights will be maintained by NSP and therefore they will need to meet NSP standards. Street light fixture A (Figure 20), which is a basic "hatbox" fixure with a shroud attachment on a 30-foot pole, was selected by the Task Force as the preferred street light design. This is a relatively simple light fixture and it is anticipated, based upon preliminary investigations, that NSP will approve it. ' In terms of street light spacing, the two choices are: uniform spacing along the whole length of the Boulevard or varying spacing, depending upon the significance of the roadway segment. Since the intent, as discussed in the Framework Plan section, is to place special emphasis on the central commercial core segment of the Corridor, having more frequent and intense lighting in the central segment would reinforce the overall concept for the Corridor of providing varying levels of treatments. ' The recommendation is to use the Style A street light fixture and to install the light fixtures at a more fre- quent spacing (approximately 150 feet on center) in the central, core commercial area including the Brookdale Mall area, between Highway 100 and 69th Avenue, and at a less frequent spacing (approximately 300 feet on ' center) in the rest of the Corridor. • Pedestrian Lights. In addition to street lights, pedestrian lighting was ' evaluated. The choices are: provide pedestrian lighting along the whole length of the Corridor; provide pedestrian lighting only at intersections and special areas; or include no pedestrian lighting in the streetscape. ' Although Brooklyn Boulevard will not be a primary pedestrian circulation area, it is believed that some pedestrian-scale lighting, especially where pedestrians from the adjoining neighborhoods access the Brooklyn Boulevard Corridor, would be appropriate. From the options considered (Figure 20), the Task Force selected Type B as the preferred pedestrian- scale light. This light fixture is similar to the type used in the Earl Brown ' Heritage Center area. The recommendation is to use the Type B pedestrian ' light fixture at intersections and in special areas to provide emphasis and pedestrian-level lighting. ' Brooklyn Boulevard Streetscape Amenities Study 42 VI. STREETSCAPE ENHANCEMENTS ' Street Furniture and Special Features The primary areas where pedestrian amenities and special features would have a functional purpose in the Brooklyn Boulevard Corridor are at the street intersec- t tions and in special areas, such as the "Town Center". A number of options for intersection treatments were investigated (Figure 21). Consideration was given to various pavement treatments including special pavers. Because of the large, automobile-oriented scale of the Corridor, it was concluded by the Task Force that using special pavers would be wasteful, but that including pedestrian lighting and special landscaping accents at the intersections would be appropriate. ' The recommendation is to use a modified version of Option D for intersection treatments and to include pedestrian amenities, ' such as transit shelters, benches, and litter receptacles, only at the transit stops. In addition, the intersection treatments should include extensive use of evergreen landscaping materi- als, which will provide a strong visual emphasis and will help to "green up" the Corridor. Recommended Streetscape Enhancement Plan ' The recommended Streetscape Enhancement Plan (Figure 22) is a composite illustration of all the recommendations regarding streetscape enhancements and intersection improvements for Brooklyn Boulevard. The intersection enhancements will have to be evaluated on a case-by-case basis ' and, depending upon the individual site circumstances or restrictions, such as sight line requirements,existing private development landscaping, or other factors, may have to be modified. ' Also, in order to implement the intersection enhancements, landscaping easements may have to be obtained from the adjoining property owners. It is anticipated, based upon the concept design, that typically, a 20 foot by 20 foot landscaping easement may be required. ' Brooklyn Boulevard Streetscape Amenities Study 43 r. h 'Zs � cp n _ t \ i I i Vi............ t F �\ \ S \ t Y t ti i VI1. SPECIAL THEME ELEMENTS Special theme elements refers to those features which will help provide Brooklyn Boulevard with a unique identity and image. As was discussed in the Framework Plan section, special theme elements include: gateways, entry treatments, corridor ' markers, and a major focal feature. Design Theme Alternatives In order to provide a theme that identifies Brooklyn Boulevard as a part of ' Brooklyn Center, the theme has to be unique and it has to have a strong relation- ship to Brooklyn Center. The first step in selecting a theme for Brooklyn Center was to explore a number of design options in order to identify the types of design treatments that would be available for Brooklyn Boulevard. The choices basically range from historical to traditional to modern, and virtually any one of these design themes could be adapted for Brooklyn Boulevard. The issue with general design themes is that they are widely used and, unless they have a distinct local reference or they are developed in a very unusual way that creates an individual statement, they may not be effective in providing the desired identity. ' The second step in deciding on a theme was to explore and identify unique features or elements, existing or historical, that could be used in developing a design theme for Brooklyn Boulevard. The conclusion of this exploration was that the strongest, or most memorable, design theme that exists in Brooklyn Center is the Earl Brown Farm theme which has been very successfully adapted in the redeveloped Earl Brown Heritage Center complex (Figure 23). This theme is unique to Brooklyn Center and it currenty forms the most memorable impres- sion of the City. ' After exploring a few traditional and modern options it was concluded that the "Earl Brown Theme" would be the most appropriate and unique for Brooklyn Boulevard. By introducing this theme on Brooklyn Boulevard and potentially in other areas of the City, the theme treatments would reinforce each other and provide a unified and distinct theme for Brooklyn Center. i 1 Brooklyn Boulevard Streetscape Amenities Study 45 P• 1011 1:: M M W.wnp."440- lid�q.r^ o■■ t '� • XFMA i ANNUAL y. ro4` INSi1TU tF iT XN IIFMS eArc ,u� ' �nt jj z Figure 23.• Image / Theme Inventory 46 Brooklyn Boulevard Streetscape Amenities Study VII. SPECIAL THEME ELEMENTS The recommendation is to adapt the "Earl Brown Heritage Center Theme" for Brooklyn Boulevard as well as for other 1 major thoroughfares in the City, in order to give the segment of Brooklyn Boulevard which is in Brooklyn Center a stronger identity and to reinforce the development of a distinct and unified overall image for Brooklyn Center. ' Definition of Theme Elements A concept for the theme elements along Brooklyn Boulevard is illustrated in Figure 24. The images represent a general idea which will need to be refined at the time of implementation. The design for the special theme elements is adapted from the "Earl Brown Heritage Center Theme". The general concept for designing the theme elements is to use heavy timbers and metal connectors to replicate the heavy timber construction used in the gates and ' fences at the Earl Brown Farm. Where needed, such as in the bus shelters or the Corridor Focal Feature, metal roofs would reflect the shapes used for barns and weather vanes could be used as accents and decorations. Rough stone cast in concrete, such as is seen in old rural structures, could be used for bases and foundations. Extensive use of landscape materials and, especially, evergreens will recall the natural environment of the Farm. Extensive and consistant use of evergreen material along Brooklyn Boulevard will help to "green up" the Corridor and M provide year-round color. ' Following is a brief description of the intent of the theme elements and general guidelines for further refinement: 1. City Gateways The Framework Plan identifies two gateways for Brooklyn Boulevard: one at the northern and the other at the southern city limits. The gateways will demarcate the entry points to the City as well as to the Brooklyn Boulevard Corridor. Similar gateways could be used at other entries to the City to reinforce the overall theme. The gateways are envisioned as a segment of a gate with a sign board ' suspended from a cantilevered bracket. The construction would include heavy metal plates, angles, and bolts. The foundation could be cast ' Brooklyn Boulevard Streetscape Amenities Study 47 r I e _ r �I City Gateway Freeway Entry i - 1 _ � r Corridor Marker Focal Feature Figure 24: Recommended Theme Elements ' Brooklyn Boulevard Streetscape Amenities Study VII. SPECIAL THEME ELEMENTS concrete with embedded, rough-split field stones or granite blocks. The edges of the roadway are defined with wood fences; spruces or pines are used for emphasis and definition. 2. Freeway Entries Two freeway entries have been identified: one at Highway 100 and one at 1-694. Besides the gateways, the freeway entries also serve to welcome ' travelers to the City. The intention is that the freeway entries perform a similar function as the gateways except that they would be designed differently, due to the different environments. The freeway interchanges are much more expansive and the treatments will have to be bolder and larger. tThe freeway entries will depend primarily on longer fence segments and larger massing of evergreens to create the entry statements. In each quadrant of the intersection, fences with rows of evergreens will define the transition from the highway to the Brooklyn Boulevard Corridor. An entry sign, similar to City Gateway signs, may be included at the termina- tion of the fence on the entry legs of the freeway ramps to the Boulevard. 3. Corridor Markers Whereas the City Gateways demarcate the entries to the City, the Corridor Markers anounce that the traveler has arrived at the commercial core. The markers would be an adaptation of a complete gate with a sign board which could provide directions to major features or facilities in Brooklyn Center. The primary functions of the Markers would be as symbols and as decorative elements. The construction and materials would be similar to the City Gateways, except that the Markers might include more flowers and ornamental shrubs. 4. Focal Feature The most significant of the theme elements will be the Focal Feature. The Focal Feature for the Brooklyn Boulevard Corridor is envisioned as a structure or large monument which would define the core or "the central place" along Brooklyn Boulevard. The intention is that the Focal Feature be developed in conjunction with a redevelopment project and that, ideally, it serve more than just a symbolic function. ' Brooklyn Boulevard Streetscage Amenities Study 49 VIII. IMPROVEMENT PROGRAM The Improvement Program for Brooklyn Boulevard involves many items and it will have to be implemented over a number of years. Following is a description of the recommended staging of the public improvements and the estimated costs. Improvement Staging The Improvement Staging Plan (Figure 25) identifies the recommended streetscape enhancement and special theme element public improvements in the Brooklyn ' Boulevard right-of-way and the sequencing for implementing them. In addition to the improvements shown in the Plan, there are two other projects currently in the planning stages: • The widening of Brooklyn Boulevard north of I-694 • The development of the storm water retention pond and MTC Park-and- Ride Facility just south of I-694 In addition, the City may choose, in the future, to do additional public improve- ments associated with private parcel redevelopment. The Improvement Staging Plan identifies the improvement segments and the staging phases. Improvement Segments The improvement segments define sections of the roadway with similar character- istics and levels of improvement. The segment characteristics relate to the intensity of adjacent land uses and significance in the Corridor. The types of ' improvement vary, based upon the desired level of treatments for the roadway. This definition of levels of improvement will be significant for the implementation of future phases. If the available funding for future phases will not permit the levels of improvements proposed in the Plan, the improvements could be scaled back. The scaling back, however, should be done proportionately so that the relative levels of improvement, among the different segments, stays the same. Brooklyn Boulevard Streetscape Amenities Study 5o I - - rth Phase . t Stament A,.. � i o \ o Flitry V � \ �\ - /"''Town center•. �- 1� Focai,FCattirc 53rd Ave. - Segment B \ \ f �\ �\ Phase ` \ 1 1G at 511th Avert ty Road 10 _ c 1 s SBtk,�,ve. Special. --- Landscaping i I r ! - inhsncetecnt 1 spec+al Cial t SeglBel>t� a wiy IGOO 4 \ 1\ Legend P. �1 i�,y)corridor Segments Segment D ` ®�Intersection Enhancements -----Existing Median-Landscaping Only ?' —•Narrow Median wide Median with Landscaping �p..haK ),C 55�:=spccW Landscaping f [j r~ 1 {. •7 0 lenlenIGDOr3W Figure 25: Improvement Staging Plan Brooklyn Boulevard Streetscape Amenities Study 51 iVI11. IMPROVEMENT PROGRAM The recommended improvements for the segments are as follows: Segment A This segment, from 69th Avenue to the northern city limits, is designated as a primarily medium- to high-density residential district. The recom- mended improvements include: • Street lights at approximately 300 feet on center, each side of the street. • Construction of landscaped medians. • Landscaped boulevards. • Street intersection enhancements at 69th Avenue (north side), 70th Avenue (east side), and 71st Avenue. 1 • A City Gateway at Shingle Creek. Segment B This segment, from 58th Avenue to 69th Avenue, is designated as the core commercial district. This segment should receive the maximum level of enhancements in order to support the redevelopment efforts and to create a strong focal area. The recommended improvement include: r • Street lights at approximately 150 feet on center, each side of the street. • Construction of landscaped medians south of 65th Avenue and landscaping of the medians north of 65th Avenue, which will be constructed as part of the road widening project. ' • Landscaped boulevards. • Street intersection enhancements at 58th Avenue (north side), Admiral Lane (west side), 59th Avenue (east side), 61st Avenue (west side), 62nd Avenue, 63rd Avenue, 65th Avenue, 68th Avenue (west side) and 69th Avenue (south side). 1 • Corridor Markers at 58th Avenue and at 69th Avenue. Brooklyn Boulevard Streetscaqe Amenities Study 52 iVIII. IMPROVEMENT PROGRAM e A Major Entry at 1-694. e The Corridor Focal Feature at 63rd Avenue. Segment C This segment, from Highway 100 to 58th Avenue, is designated as a primarily medium- to high-density residential district. An exception in ' this segment is Brookdale Mall on the east side of the roadway. The recommended improvements include: ' e Street lights at approximately 150 feet on center, each side of the street. e Landscaping of the existing medians. ' e Landscaped boulevards. e Intersection enhancements at 55th Avenue, 56th Avenue (east side), and 58th Avenue (south side). e Special landscaping treatments (low shrubs and groupings of evergreen trees) along the east side of the roadway between ' Highway 100 and 56th Avenue and along the west side, in front of the commercial uses just north of Northrop Drive, in order to enhance the corridor image. e Special landscaping screening (tall shrubs, ornamental trees, and groupings of evergreen) along the west side of the roadway between Highway 100 and 58th Avenue, except for the segment in front of the commercial uses, in order to buffer the residential uses from the roadway. e A Major Entry at Highway 100 (north side). ' Segment D This segment, from the southern city limits to Highway 100, is designated as a primarily low-density residential destrict. This segment has a different character from the rest of the Corridor since the adjoining ' residential uses contain abundant landscaping. The recommended im- provements include: ' Brooklyn Boulevard Streetscape Amenities Study 53 VIII. IMPROVEMENT PROGRAM ' • Street lights at approximately 300 feet on center, each side of the street. • Landscaping of the existing median just south of Highway 100. 1 • A City Gateway just north of 49th Avenue. Improvement Cost Estimate Following is a preliminary cost estimate of the proposed streetscape improve- ments. The costs are estimated in 1994 dollars. The costs are presented by improvement phases which relate to logical segments bf how the improvements might be staged. Thus, Phase 1 includes the segment of Brooklyn Boulevard which will be improved as part of the roadway widening project, as well as the major theme elements which are deemed essential for establishing a theme for the Corridor. Phases 2, 3, and 4 reflect the sequencing based upon significance for completing the Brooklyn Boulevard improvement program. Table 1 provides unit costs for the different types of treatments per lineal foot or by area; Table 2 provides detailed costs for each of the phases and a summary of all improvement costs. The preliminary cost estimate indicates that Phase 1 improvements will cost approximately $ 1,000,000 and the total Brooklyn Boulevard right-of-way improvements will be approximately $ 2,700,000. In addition to the streetscape improvement costs, funding will be required to ' remove the overhead power lines. A preliminary estimate by NSP, for removal of all the overhead power lines in the Brooklyn Boulevard Corridor, indicates costs of up to $ 1,000,000. Further discussions with NSP need to be held to refine these costs and to finalize funding programs and implementation. Brooklyn Boulevard Streetscape Amenities StudY 54 VIII. IMPROVEMENT PROGRAM Table I ' Preliminary Cost Estimate Improvement Components - UNIT ITEM COST/L.F. NO. ITEM UNIT UANT. COST OF ROAD OR AREA ' A-1. STREET LIGHTS a 300 O.C. EACH $3,450.00 $23.00 PER L.F. 2 LIGHTS/300 L.F.) 'A-2. STREET LIGHTS 0 150' O.C. EACH 0 $3.450.00 $46.00 PER L.F. (2 LIGHTS/ 150 L.F.) B. BOULEVARD ENHANCEMENTS i REMOVALS- - 1 10 S.F. /L.F. 2 A M R -4" CON R.WALK- ' F. 12 2. 0 30-.0-6-P P R L.F. M L.F.3" CAL. ®40'O.C. L.F. 0.05 300.00 15.00 PER L.F. /40 L.F.LAC MENT S. 12 0.25 3.00 PER L.F. L.F.AL $53.00 PER L.F. C. MEDIANS-LANDSCAPING ONLY j ' 1 GRADING S.F. 18 $0.25 $4.50 PER L.F. =GRADING /L.F. 2 MEDIAN APRON-4" CONCR. -2' S. . 4 2.50 10.00 PER L.F. (4 S.F. 50 P R L.F. - 3 'TREES-3" CAL. 4u u.�. L.F. 0.025 300.00 4 SOD EE/40 L.F.) --- S.F. 1 16 1 $0725 $4.00 PER L.F. 16 S.F. /L.F. C. TOTAL $26.00 PER L.F. D. MEDIANS-NARROW(6' WIDE) 2 L.F. /L.F. 2 REMOVALS-EXIST. PAVEMENT S.F. 8 $0.50 $4.00 PER L.F. 8 S.F. /L.F. 3 CURB-AND-GUTTER B612 L.F. 2 $8.00 . $16.00 PER L.F. ' 2 L.F. /L.F. A -4' 5 S.F. /L.F. 5 MISCELL. -SIGNS,STRIPING L.F. 1 0.50 0.50 PER L.F. D. TOTAL $45.00 PER L.F. Brooklyn Boulevard Streetscape Amenities Study 55 Vill. IMPROVEMENT PROGRAM ' Table 1 (Continued) ' -- UNIT ITEM COST L.F. NO. ITEM UNIT bUANT.I COST OF ROAD OR AREA E. MEDIANS-WIDE(20'WIDE) I 2 $6.00 $12.00 PER L.F. 1 SAWCUI'IING, EXIST. PAVEMENT L.F. 2 L.F. /L.F. 1. r 22 S.F. /L.F. ' CURB-AND-GU ER, 612 L• . 2 L.F. /L.F. 2.50 $10.00 PER L.F. 4 M DI AN APRON-4" CONC. -2' 4 S.F. /L.F. S- � 1 TREE/40 L.F. 6 SOD S. 16 0.25 4.00 PER L.F. 16 S.F. !L.F. E. TOTAL $60.50 PER L.E. I I F. INTERSECTION ENHANCEMENTS 4 UADRANTS) 1 ORNAMENTAL LIGHTS(PED.) EACH 8 $3,500.00 $28,000.00 PER INT. 2 W2 LIGHTS/ UADRANT D FENCE- HEME L. 80 4 .00 3,200.00 PER IN 20 L.F. / UADRAN 3 TREES-EVERGREEN, 12'-16' HT. EACH 12 $400.00 $4,800.00 PER INT. 3 TREES/ UADRANT 4 SHR S A FLOW RS L.S. 1 2,000.00 2.000.00 PER INT. I - r F. TOTAL j $38,000.00 PER INT. i G. I CITY GATEWAYS �- 1 E I TRY SIGN EACH 1 �i�. �00 15,000.00 PER AREA ' (INCL. BASE&LIGHTING 2 1 TREES- EVERGREEN, 12'-16' HT. EACH 6 $400.00 $2,400.00 PER AREA 3 SHRUBS A i . . 1 , A ; G. TOTAL 1 $20,000.00 PER AREA ' Brooklyn Boulevard Streetscape Amenities Study 56 VIII. IMPROVEMENT PROGRAM Table 1 (Continued) UNIT ITEM COST/L.F. i NO. ITEM UNIT UANT. COST OF ROAD OR AREA H. CORRIDOR MARKERS 1 CORRIDOR MARKER EACH 1 $20,000.00 $20,000.00 PER ARE NCL. BASE&LIGHTING 4 12'-1 . S UBS A D FLOWERS L.S. 1 2;6 .00 ARE 2,600.00 PER i H. TOTAL $25,000.00 PER AREA 1. MAJOR ENTRIES-HWY. 4 QUADRANTS 1 GRADING&SEEDING L.S. 1 4.800.00 $4,800.00 PER ENTR ' ACH 4 15,00.00 60,000.00 P R NT 2 ENTR S NS 1 SIGN/ UADRANT 3 FENCE-THEME TREATMENT L.F. 480 $40.00 1 $19,200.00 PER ENT 120 L.F. / UADRANT 4 TREES-EVER GREEN, 12'-16' HT. EACH 40 $400.00 $16,0 0.00 0 PER ENTR 10 TREES/QUADRANT) L TOTAL $100,000.00 PER ENTO i J. li "TOWN CENTER" FOCAL FEAT. ! � 1 FOC F ATURE L.S. 1 1 000.00 100,000.00 PER Ai ' J. TOTAL $100,000.00 PER AREA I K. SPECIAL LANDSC. ENHANC. 1 SHRUBS L.F. 1 li $30.00 $30.00 PER L.F 1 SHRUB/L.F. INCL. IRRIG. K. TOTAL j $30.00 PER L.F. L. SPECIAL LANDSC. SCREENS I 1 S 2 SHRUBS/L.F. INCL. IRRIG. L. TOTAL $60.00 PER L.F. ' Brooklyn Boulevard Streetscape Amenities Study 57 VIII. IMPROVEMENT PROGRAM ' Table 2 Preliminary Cost Estimate Development Phases and Summary - UNIT ITEM COST NO., ITEM UNIT UANT. COST ' I ! PHASE I (SEGMENT A) I ',A-1 j STREET LIGHTS Q 300 O.C. L.F. 3,000 $23.00 I 69,000.00 D ' MEDIAN-NARROW(6'WI ) L.F. 1,000 45.00 45,000.00 , E MEDIAN -WIDE(20'WIDE) L.F. 1.500 $60.50 $90.750.00 G CITY GA EWAY EACH 1 2 00.00 20,000.00 PHASE I (SEGMENT A)TOTAL $459,750.00 II PHASE I(SEGM. B-PARTIAL) i _-� 40 A-2 STREET LIGHTS® 150' 3, 0 $46.00 $156,400.00 B BOULEVARD ENHANCEM. F. 2.600 I 53'00 1 8 00 -- C MEDIAN LANDSC. ONLY L.F. 1,300 $26.00 $33,800.00 F INTERSECT ON ENHANCEM. EACH 1. 38.000.00 57,000.00 I ' i H CORRIDOR MARKER ACH 1 2 25,000.00 I MAJOR ENTRY- HWY. EACH 1$100 000.00 $100.000'00 T PHASE 1 (SEGM. B-PART.)TOTAL $510,000.00 PHASE I (A& B-PART.)TOTAL $969,750.00 ' Brooklyn Boulevard Streetscape Amenities Study 58 Vill. IMPROVEMENT PROGRAM ' Table 2 (Continued) ' UNIT ITEM COST NO. ITEM UNIT UANT. COST III PHASE 2(SEGMENT B-PARTIAL) ' A-2 STREET LIGHTS(B? 150 O.C. L.F. 4,800 $46.00 220.800.00 A ,4 M DIA -NARRO (6' DE) j L. 1, 45.00 58,5 .00 E MEDIAN WIDE(20'WIDE) L.F. 1,500 60.50 $90•750 A EACH 1 25,000.00 25,000.00 H CORRIDOR MARKER I, J "TOWN CENTER" FOCAL FEAT. EACH 1 $100, 5-00 $1��'� ' 1 PHASE 2(SEGM. B-PART.)TOTAL i $939,450.00 i I IV PHASE 3(SEGMENT C) A-2 STREET G TS® 1 0' O.C. L.F. 46.00 165,600.00 B BOULEVARD ENHANCEMENTS L.F. 3,200±—$53.00 $169,600.00 C j MEDIAN-LA CAPING ONLY 1 L.F. I 2, 26.00 52,000.00 - F INT RS C ION ENHANC M. AC 2 38,000.00 6,000. 0 -- I I MAJOR ENTRY-HIGHWAY( 'EACH 0.5 $100,000:00 $50,000.00 K SPECIAL LANDSC. ANCEM. L.F. 1,300 !, 39,000.00 ---� L .' SP IAL LANDSC. SCREEN L. 2,4 1 PHASE 3(SEGMENT C)TOTAL $696,200.00 i ' V ' PHASE 4(SEGMENT D) A-1 F STREET EIGHTS( 3300' O.C. L.F T 2,000 $23.00 $46.000'00 A - A -�I`. 1 • ' G CITY GATEWAY EACH 1 $20,000.00 $20,000.00 I - — I MA ENTR -HIGHWAY EA 0.5 100,000.00 01000.00 PHASE 4(SEGMENT D)TOTAL $131,600.00 ' I 59 Brooklyn Boulevard Streetscape Amenities Study VIII. IMPROVEMENT PROGRAM I Table 2 (Continued) UNIT COST NO. ITEM UNIT UANT. COST SUMMARY BY PHASE COST PER L.F. PHASE 1(A&B-PART.)TOTAL L.F. 1 6,400 $152.00 $969,750 PHASE 2(SEGM.B-PART.)TOTAL L.F. 4,800 $196.00 I $939,450 PHASE 3(SEGMENT C)TOTAL L.F. 3,200 $218.00 $696,200 ' I PHASE 4(SEGMENT D)TOTAL L.F. 2,000 $66.00 1 $131,600 GRAND TOTAL I L.F. 16,40 $167.00 $2,737,000 TOTAL %OF I SUMMARY BY ITEM I I i AMOUNT TOTAL $115,000 4% A-1 STREET LIGHTS® 300' O.C. A-2 STREE T LIGHTS® 150' O.C. $542'800 20`% BIBOULEVARD ENHANCEM. $720.800 26% C MEDIAN-LA SC. ONLY 101.400 4 0 D 'j MEDIAN-NARROW(6'WIDE) $103,500 4% E 1 MEDIAN -WIDE(20'WID ) 181. 00 7% F I IINTERSECT-1 `i ENHANCEM. $40.000 1% G , CITY GATEWAY 50.000 '-%� H CORRIDOR M R I MAJOR -HIGHWAY J "TOWN CENTER" FOCAL FEAT. $100.000 4 � to A S A L i SPECIAL LANDSC. SCREEN $144.000 — , GRAND TOTAL $2,737,000 100% Brooklyn Boulevard Streetscape Amenities Study 60 IX. REDEVELOPMENT PROGRAM A second major component of the Brooklyn Boulevard upgrading program, besides the public streetscape improvements, is the redevelopment of private properties in the Corridor. The public improvement program and the private redevelop- ment efforts should be treated as a related set of tools which ' complement and reinforce each other. ' Redevelopment Issues In redeveloping properties in the Corridor, three key issues need to be addressed: ' • The size and shape of the property to be redeveloped • The program and pattern for redevelopment ' • Development guidelines for redevelopment Size and Shape of Redevelopment Parcels ' In the Inventory/Analysis section a detailed evaluation was presented of all the parcels along the Brooklyn Boulevard Corridor which should be or might be ' considered for redevelopment. The two key issues in most of the cases is how large the redevelopment parcels should be and how they should relate to the adjoining uses. ' In terms of size and shape of parcels, the two key consider- ations in redeveloping properties in the Brooklyn Boulevard ' Corridor should be to: • Assemble parcels which are large enough to permit higher-density developments and reasonable access and circulation patterns; and ' • Identify desirable boundaries between the proposed developments and existing adjoining land uses. ' Brooklyn Boulevard Streetscape Amenities Study 61 I IX. REDEVELOPMENT PROGRAM Currently, Brooklyn Center has the one-acre minimum lot size requirement for redevelopment. This is a good tool, but larger development parcels might be more desirable and more marketable. Also, changing land uses along back property lines is preferable, in most cases, over changing uses across streets. This is especially applicable if single-family uses are invoved. ' Program and Pattern for Redevelopment ' Redevelopment Program The program or types of uses which should be considered will vary based upon the location and market forces. As is recommended in the Framework Plan, the central segment of Brooklyn Boulevard should be developed primarily as a commercial district with the rest of the Corridor to be developed for either higher-density residential or, south of Highway 100, for single-family residential. More specifically, the Framework Plan includes recommendations that neighbor- ' hood-oriented commercial uses be developed at 58th Avenue, 63rd Avenue, and 69th Avenue. It would be in the City's interest to steer developments in these three areas to include at least some neighborhood service and retail facilities. Development Patterns In terms of development patterns, the key issue is the arrangement of the buildings on the site and the corresponding relationship of the developments to ' the street and to parking. The Brooklyn Boulevard Corridor developed primarily in the post World War II era as an automobile-oriented, suburban strip. This has resulted in the generally suburban pattern of buildings set well ' back from Brooklyn Boulevard and surrounded by parking. However, in order to service the adjoining neighborhoods and reduce the number of automobile trips, pedestrian circulation systems should be a priority. ' One of the principal guidelines for redevelopments along Brooklyn Boulevard should be to provide a comfortable and ' convenient internal pedestrian circulation system, in order to minimize multiple trips by car and to encourage walk-in use from the adjoining residential neighborhoods. In this regard, because Brooklyn Boulevard is a very wide roadway which carries large volumes of traffic and therefore is difficult to cross, developments should ' be located primarily in one quadrant of an intersection or, at least, on one side of the Boulevard (Development Location Concept diagram in Figure 26). ' Brooklyn Boulevard Streetscape Amenities Study 62 tnri try Exp dcd Redcvc�tpmcnl � 1 RcdevC�pmcnt 1 // \�.� (Otto l)uaJ r:mCirf Imenn9lon) I i a I /, \l\, 4 / parking OCOCaF r+R000O �Y1 G1c�+C�c:aC>G®Qom � `Inletnal 1 (:\cross ;Oilector sit,: g from Prigtaty Site) Circulatiot I 3 D i ti•sm My� Q \ I \ 13 te--- J 3 -------�'------� 1 ry^ / Cpw Minor Arterial Brooklyn Boulevard! opment Development @000 Location Concept Deve Alternative B / x Alulti-LevCl, .. Parking--X Mixed-Use Rut( // /` Development Bicyclist Access mo / Parking 4) got Vehicular 'c• Access or`l 7 \� '�i a�trlt' o® �!` Parking Below Development Develop ment o Grade m Alternative A 0 Alternative C Figure 26: Redevelopment Patterns 5.Corridor St id H.ve 15.Outdoor Eating Facilities L Redevelopment Projects Should Ire located in One Physi—I Design Continuity and Seating Should be tZn:rArun u(Intersection Promoted G.Developments Should ?.Development Densities Should Have visual Focal ').Roofs Should – be High ac Possible Features Have varied (This Example Represents Shapes a to—r-Density Development) i 12.All Sides of— a Building 1t 4.Screening Should be Provided Should Have b. �-•"t � 7- for Adjoining Single-Fantlly Consistent � � r Neighborhoods F Treatment � j`� �'1`�'� 16.Signs Should Complement •,�yd� It Q... ,-H Developments 14.Facilities for e.Walls Should i Bicyclists ' be Treated- N i Should be Not Blanit , Provided 7.Edges of Corridor 1 3,Vehicular ACCe55 Should be Well Defined \ �IM R ' �;/ Pouns Should (Buildings,landscaping,Fen ces) be as Far from N i Intersections 11.Materials attd Colors 10.Parking lots 1 -'.y as Possible Should be Compatible Should Nave h d Islands ./, 113,Pedestrian Walls Should m Developent and Edges link All Developments Enhancement Guidelines Figure 27: Recommended Development Guidelines Brooklyn Boulevard Streetscape Amenities Study 63 IX. REDEVELOPMENT PROGRAM A second issue for Brooklyn Center, in terms of development patterns, is whether to continue with the "suburban model" or whether to promote a more "urban model" with buildings set closer to the street and street frontages developed with more urban amenities and facilities for pedestrians. Three prototypical models for retail site developments are illustrated in Figure 26. • Development Alternative A. In this model, a single-story development faces the street with a free-standing building on the corner. This allows relatively good visibility of the front doors of all facilities and relatively good site circulation. In this model the primary building extends to the streets allowing convenient and direct access into the development for pedestrians. This is preferable to models where the buildings are located at the rear of the site, requiring pedestrians to cross parking lots to reach ' the facilities. • Development Alternative B. In this model, the buildings are located along the property line and the parking is in the back of the development. This creates a more urban look along the street, however, since the entries are in the back and because most small businesses can not afford two entries, the facades toward the street are treated as the back sides of the buildings and frequently have no access from the street and little public amenities, such as windows or enhancements. • Developement Alternative C. This model represents a higher-density mixed-use development, which could include retail on the first level and either housing or office uses on the upper level. This type of development would allow a more urban frontage along the street, but it would require a parking structure or underground parking, which greatly increases site development costs. In order to increase the land intensities in the Brooklyn Boulevard Corridor, to provide for more convenient pedestrian access and circulation, and to develop a more distinct image for Brooklyn Boulevard, the recommen- dation is that efforts be made to promote and encourage higher-density developments which are located closer to the street. As a general rule, if a building does not extend to the street, no more than one row of parking should be placed between the building and the street. ' Brooklyn Boulevard Streetscape Amenities Study 64 IX. REDEVELOPMENT PROGRAM Recommended Development Guidelines In many cases, the City may not be able to select, unless it is a participant in the redevelopment process, the types of developments which occur or the site layouts. However, the one area where the City can exert some control is in development guidelines which could be applied to the Brooklyn Boulevard Corridor. Development guidelines, applied to redevelopment projects or new developments, could help mitigate undesirable features and create the type of environment the City desires for the Brook- lyn Boulevard Corridor. The proposed osed development guidelines are illustrated in a sample development (Figure 27), which consists of a single-story commercial retail complex located at an intersection. This example is not meant to represent a recommended development. It is being used to demonstrate how the guidelines might be applied to a typical situation in today's marketplace. Following are the recommended idevelopment guidelines for the Brooklyn Boulevard Corridor. 1. Redevelopment Project Location at Intersections. Redevelopment projects should be, preferably, located in one quadrant of an intersection, or at least on one side of Brooklyn Boulevard, not both. A project should not try to link both sides of Brooklyn Boulevard with pedestrian circula- tion. 2. Development Densities. Development densities and site coverage in the Corridor should be generally increased. The appearance of the corridor should become somewhat more "urban." The increased densities should be complemented by improved design details, landscaping, lighting and signage. 3. Vehicular Access Points. Vehicular access points should be set back from major street intersections and other driveways as far as possible, according to individual site conditions and accepted traffic engineering standards. As a general rule, driveways on Brooklyn Boulevards should be at least 150 feet from major intersections. Vehicles should be able to circulate, as much as possible, between adjoining sites so as to minimize congestion on the public streets. 4. Adjoining Single-Family Neighborhoods should be Protected. Any single-family residential neighborhoods, which abut the developments along Brooklyn Boulevard, should be protected or screened from adverse Brooklyn Boulevard Streetscape Amenities study 65 IX. REDEVELOPMENT PROGRAM visual impacts. Building heights and massing should be reduced adjacent to single-family housing. In all cases, landscaping, berming and/or fencing should separate commercial and residential activities; commercial traffic should be directed away from residential streets; and commercial lighting should be directed away from housing. Hours of business operation near housing should be regulated in cases where they may have a negative impact on the housing. 5. Physical Design Continuity. There should be physcial design continuity along the Corridor within the public right-of-way as well as the private developments. This should be achieved primarily through the public landscaping and lighting improvements, but should be supplemented by private landscaping, parking lot screening, 'and facade and roofline treatments. 6. Visual Focal Features. Major private developments should include a visual focal feature, such as a clock tower, entry arch, or other architec- tural element, to serve as memorable and meaningful landmarks. 7. Corridor Edge Treatments. The edges of the Brooklyn Boulevard Corridor should be clearly defined. This can be accomplished by several means: • Locating buildings or parts of buildings close to the edge of the street right-of-way • Locating a building at the point of each intersection corner • Buffering the edges of parking lots with berming, plantings, and/or fencing When a building is set back from the street right-of-way, there should be no more than one bay of parking between the sidewalk along the street and the building. Also, building setbacks not separated from the street by parking should be landscaped. 8. Building Wall Treatments. Building walls along Brooklyn Boulevard should not be blank. All walls facing streets or walkways should include windows, doors, openings, or other treatments which would help mitigate the "unfriendly" appearance of blank walls. At a minimum, display windows should be used. This will improve the aesthetic environment for both motorists and pedestrians. Brooklyn Boulevard Streetscape Amenities Study 66 IX. REDEVELOPMENT PROGRAM 9. Roof Shapes. Roofs of buildings in the Brooklyn Boulevard Corridor should not be flat. Sloping, peaked, gabled, or shed roof designs would add visual variety and would help to reinforce the "Earl Brown Heritage Center Theme", which has been selected for the Corridor. 10. Parking Lot Treatments. Islands in parking lots should be landscaped 1 for visual relief and enhancement. All parking lots which adjoin Brooklyn Boulevard, including the lots of automobile dealerships, should be screened with a continuous row of dense landscaping, at least two feet tall, or an ornamental fence or railing. 11. Materials and Colors. A degree of compatibility, but not uniformity, should be brought to new private developments through the use of materials and colors selected from a recommended common palette. The ' major concern should be regarding low-quality materials and garish colors. 12. Treatment Consistency. The appearance of all sides of a building should be consistent in terms of the quality of materials and finishes. Screen walls and landscaping may be used as a substitute for a change of materi- als on rear walls, or walls which may not be visible by the general public. 13. Pedestrian Circulation. Pedestrians should be able to move with comfort iand security between the public sidewalks and private developments and between buildings on the same site. As much as possible, pedestrian walks should be provided directly between adjoining developments to encourage more pedestrian use. Pedestrian routes from the street to the building entrances and through each site should be clearly defined using building massing and architec- ture, sidewalks, landscaping and lighting. Awnings and arcades over windows and doors should be employed to protect pedestrians from the elements. 14. Bicyclist Facilities. Each development should include a bicycle rack(s), and sidewalk ramps should be installed at curbs for both bicyclists and the disabled. 15. Outdoor Eating and/or Seating. Developers should be encouraged to incorporated, whenever possible, outdoor eating facilities, such as sidewalk cafes or outdoor eating for restaurants, and outdoor seating. Brooklyn Boulevard Streetscape Amenities Study 67 IX. REDEVELOPMENT PROGRAM 16. Signs. Signs along Brooklyn Boulevard should be designed to comple- ment and enhance the Corridor. • Freestanding signs should have a limited number of names and/or logotypes (a maximum of three). They should be designed to appear as a single sign from a distance through the use of a framework of materials consistent with the building facade. • Wall signs should not be white backlit plastic; individual letters are preferred; colored plastic panels with white or colored letters may also be acceptable. No bulletin signs (either portable or perma- nent) should be allowed. In addition to the relative large site used in the above example, consideration needs to be given to the development of smaller sites, which most likely will become more available along the Corridor, as well as mixed-use developments. ' • Small Site Developments. Figure 28 illustrates how a small, linear site along the Boulevard might be developed utilizing the recommended development guidelines. The site is approximately 2.5 acres and the development represents a small neighborhood-oriented retail strip and a free-standing restaurant. ' The example illustrates desirable building massing, vehicular circulation, pedestrian circulation with an internal link between the buildings, screen- ing for adjoining single-family residential uses, a site focal feature, and extensive landscaping and edge treatments along Brooklyn Boulevard. • Mixed-Use Developments. Figure 29 illustrates a mixed-use development ' on a 3-acre site with commercial retail facilities on the lower level and residential units or offices above. The development has enclosed parking for the residential units or offices. This example illustrates the same desirable site development features as the Small Site Development and in addition it shows how a taller develop- ment could be stepped down towards adjoining single-family uses. i 68 Brooklyn Boulevard Streetscape amenities Study '49 i I Figure 28: Small Site Development Option a® n d � � i M � � R Figure 29: Mixed-Use Development Option 69 Brooklyn Boulevard streetscape Amenities Study IX. REDEVELOPMENT PROGRAM Redevelopment Case Studies In order to provide examples of the application of the development principles and guidelines to the Brooklyn Boulevard Corridor, three special case studies were prepared: the I-694 to 69th Avenue Area; the 69th Avenue Area; and the 71st Avenue Area. I-694 to 69th Avenue Area Special Study The area on the east side of Brooklyn Boulevard between I-694 and 69th Avenue will require some redevelopment due to the widening of the roadway. Here the issue is whether to do only the minimum and try to preserve the area, as much as possible, as is or whether to consider some redevelopment in order to improve site configurations and access to the parcels. ' • Existing Conditions (Figure 30). The widening of the roadway will require acquisition of portions of the parcels on the east side of Brooklyn Boulevard, which will result in inadequately sized parcels for the current uses. In addition, the multiple access points on Brooklyn Boulevard create VI At A • C tom., ��`,�` f '+ �t"�, Figure 30: I-694 to 69th Ave. Area Special Study - Existing Conditions Brooklyn Boulevard Streetscape Amenities Study 70 0 iIX. REDEVELOPMENT PROGRAM traffic conflicts. The plan also calls for construction of a median with a median break only at 68th Avenue. This requires changes to the circulation in the study area. There is also demand to create a stormwater storage pond in the vicinity of 69th Avenue and the auto dealerships have expressed interest to acquire additional land for expansion. • Alternative A (Figure 31). This alternative calls for acquiring the smaller parcels along Brooklyn Boulevard including the Brookdale Pontiac site and reconfiguring the parcels to provide larger sites for the two large automobile dealerships as well as a 2.7-acre site for a stormwater storage pond. The access point at 68th Avenue would be shared by both automo- bile dealerships and each would have one additional acces point (the second access for Bob Ryan Oldsmobile would be right-in/right-out only). ' • Alternative B (Figure 32). This alternative is similar to Alternative A, except that a 1.8-acre parcel for general commercial uses would be created at the corner of Brookdale Boulevard and 69th Avenue and the stormwater ponding site would be only 1.8 acres. The commercial parcel would have its primary access from 69th Avenue. • Alternative C (Figure 33). This alternative has a larger commercial site ( 2.2 acres), but a still smaller stormwater ponding area ( 0.6 acres). The access point would be shared by all three parcels and there would be room for a major sign for the whole development. • Alternative D (Figure 34). In this alternative the commercial site is still ' larger ( 3.1 acres) and there is no room for a stormwater storage pond. The largercommercial site would allow more flexibility in site design- which' which might improve its marketability. In all four alternatives, the reconfigured commercial site could be used to relocate some of the displaced businesses. The four alternatives present clear choices and more detailed evaluation, assessment, and discussions need to be held before a plan is finalized. ' 69th Avenue Area Special Study The second case study deals with the quadrant east of Brooklyn Boulevard and north of 69th Avenue. This area, similar to the area south of 69th Avenue, is also impacted by the roadway widening and questions arise about how this area should be redeveloped. ' Brookiyn Bouievard streetsCape Amenities study 71 dos .a t �- �+r "' /; r 4 �� -� �`•�`��, .•jam _ a At TV iFigure 31: I-694 to 69th Ave. Area Special Study - Alternative A eob�iepr aE s ��� 4 r In /j t«-y'• .i,�,��{q.Mnty4•w'.L�'� _- a4j==CP4 IV- +�# Wit, �° �•`� � ,H..taa 'f `�..�".�' '• A S < e f l7E�t_t Omce ro 1 \\ �r Figure 32: I-694 to 69th Ave. Area Special Study - Alternative B Brooklyn Boulevard Streetscape Amenities Study 72 • f• f♦ slur •le •# Alp to till OL Q, * Bob Olds iobile At ��_A-=PO SL�•_. •" Raw... �f 4{r ^ 1%41 OFUCC 4f IV 6 aim no ro ¢4 Figure 33: I-694 to 69th Ave. Area Special Study - Alternative C 74 x• „�• b� 4 �. b$f` �.•'Y :;� i`�- •rye. ,"� ^ ` _ Ol1 Ryan Os a� �♦ '"' 1C,$6,,.. y �j // dsmobile ro�\ Lam+ • t` Figure 34: 1-694 to 69th Ave. Area Special Study - Alternative D 73 Brooklyn Boulevard Streetscape Amenities Study t I' IX. REDEVELOPMENT PROGRAM The 69th Avenue area typifies a situation where the immediate needs or impacts may appear to be relatively small, but the ' opportunities for redevelopment and enhancements may be, upon closer inspection, much greater than anticipated. ' Forces/Issues Figure 35 illustrates the Forces/Issues which impact this area and which should be taken into consideration in preparing any plans for the 69th Avenue area. The key Forces/Issues are: ' • Redevelopment Site Configuration The site immediately adjacent to the corner, between Brooklyn Boulevard, June Avenue, and 70th Avenue is the most likely candidate for redevelop- ment. Parts of this area will need to be acquired for widening of Brook- lyn Boulevard and some of the buildings are showing their age. There has ' been infringement, as the commercial parking needs have grown, on the residential area along June Avenue. The optimum solution, in order to establish a clear boundary with the residential areas to the east and to utilize the median break on 69th Avenue, would be to acquire all the houses on June Avenue for redevelop- ' ment. This would create a parcel of approximately 4.5 acres. ' An additional factor in determining the size of the redevelopment area is the St. Alphonsus Church site north of 70th Avenue, which is underuti- lized and a prime candidate for redevelopment. . Also, the two residential ' units on Brooklyn Boulevard, north of 70th Avenue are incompatible with the character of Brooklyn Boulevard. The overall potential redevelopment area, including the small office building and the small apartment complex, could be 15 acres, or more. • Area Vehicular Circulation and Site Access The two key access points to the larger redevelopment site would be from Brooklyn Boulevard at 70th Street and from 69th Avenue just west of Indiana Avenue. These access points need to be coordinated with access needs across Brooklyn Boulevard to the west and across 69th Avenue to the south. Brooklyn Boulevard Streetscape Amenities Study 74 !8 7 . g�w I acted sue if sift 1 I : ° IIi Rcfocadonot / r�x - i j 1 u site 1oe�t� + ul I II 1 ) r r3eea.m , ^tl __ 'ti a ' o •., IS A 11teoce ��rreelopmenc Right in( y� i• A .' R1�[pert 0. O _• '—-.__._-- - _� ` �_---- Vol a , � ell M o ,a. ree Yeeaoion Rohazec=wf�d. p' , Igs Neesk iq be t � Figure 35: 69th Avenue Area Special Study - Forces /Issues ? d w .� i j h W , ��Jig4-Density . r----�.± ��o - a ♦, '$eaidenttal - :a�tt-lea 'k•?r 100 Unlit c Z2 Units/Acre Re�ailj d 420o p ant —I �/3 960) e1 80 Parking Spaces Wave J ' / r I Office-BgiloIng - Ritau rr ' I l north u_ �s— D � S(Mi3toe u 1 _ 0 60 16�0 200 �'` � Q'��♦ _ ' r•,. �y�--•� �- ,t,s. Figure 36: 69th Avenue Area Special Study - Concept A Brooklyn Boulevard Streetscape Amenities Study 75 IX. REDEVELOPMENT PROGRAM ' Other traffic issues concern the status of 70th Street (should it stay open or should it be closed), access to the Church parking lots, circulation through the adjoining residential neighborhoods, and additional right- in/right-out access locations. • Area Pedestrian and Bicycle Circulation All plans for the area should provide for convenient pedestrian/bicycle ' circulation to and from the adjoining neighborhoods and within the developments themselves. ' • St. Alphonsus Church Site Although St. Alphonsus Church may have an underutilized site, it still needs to accommodate all required functions such as a play field, recre- ation areas, and parking. • Buffering and Screening The adjoining residential areas should be buffered or screened from intrusive visual impacts. ' • Redevelopment Program The redevelopment program should take into consideration the needs of the neighborhood and the City. Since this area has been identified as the site for a neighborhood-oriented commercial node, the developments should be geared, at least partially, towards providing services and retail facilities for the adjoining residential areas. Another development component might be multi-family or senior housing. ' St. Alphonsus Church representatives have expressed an interest in senior housing and this might be included in the program. Currently, the City is undertaking an economic study for this redevelopment area which will ' help establish the level of demand for retail and housing facilities. • Phased Developments Because the total site may not become available at one time, the develop- ments should be able to be staged and be able to operate as self-sufficient, ' independent units. ' Brooklyn Boulevard Streetscape Amenities Study 76 IX. REDEVELOPMENT PROGRAM Redevelopment Concepts Based upon the Forces/Issues Analysis, four concept diagrams were prepared for how the site might be developed. All the concept alternatives represent multi-use developments including medium to high-density housing, offices, restaurants, and ' retail and service commercial uses. The total assumed redevelopment site is approximately 18 acres. Concept A Concept A (Figure 36) represents a multi-use development with its ' primary orientation and statement at the corner of Brooklyn Boulevard and 69th Avenue. The project includes the following: a multi-tenant retail complex at the corner with one row of parking along the street frontages and additional parking in the back; the existing small office building north of 70th Avenue; a free standing restaurant north of the office building; a single-tenant or multi-tenant retail complex north of 70th Avenue, adjacent to the Church property; and a medium to high-density residential complex at the north end of the site. Major features or issues of Concept A are: • It places a neighborhood-oriented commercial complex close to the intersection thus establishing a "strong" presence on Brooklyn Boulevard and providing easy access to the retail from the adjoin- ' ing neighborhoods. • The large retail facility north of 70th Avenue may be set too far back from the Boulevard and it creates a barrier for St. Alphonsus Church. • The plan calls for vacating parts of 70th Avenue requiring all traffic destined to the residential neighborhood or to St. Alphonsus Church to use Indiana and Halifax Avenues. Concept B ' Concept B (Figure 37) represents a multi-use and/or mixed-use develop- ment which is totally oriented to Brooklyn Boulevard. Although it curves back from Brooklyn Boulevard in the vicinity of 70th Avenue, a large civic plaza or small park at 70th Avenue and the fact that all front doors and access faces the roadway, give it a strong "presence" on Brooklyn ' Boulevard. ' Brooklyn Boulevard Streetscape Amenities Study 77 , 1 ....- � 'hSl'� 1.:a � ! • � . �1 .: Sy'2.� � ... � w _ - > 4.4 Acres 3.7 Acres lot loo 2oo - ' Figure 37: 69th Avenue Area Special Study - Concept B ,4.4 Acres � t t.. Reconllgured - YIaY Area 1oa es :i Reath �• 7 .8... 11es3denrial >M ' -tkruu _ .4 Acres Ex6tin8 Oface Building r - .®- TM 9! k` g•� r Offi& 77 o 5,Go 2oc Figure 38: 69th Avenue Area Special Study - Concept C 7$ Brooklyn Boulevard Streetscape Amenities Study IX. REDEVELOPMENT PROGRAM ' In addition to the uses listed in Concept A, Concept B also includes office uses and, potentially, a greater variety of residential unit types. The complex at the corner could have retail on the ground floor and residential or office uses above. The building east of the plaza could have ' retail on the ground floor and offices above with the office parking on the east side of the building. The office parking could then be used as a shared parking facility with the Church, thus reducing the overall parking ' requirements. The building north of the plaza could have retail or a restaurant on the first level with market-rate housing or a special assisted living complex on the upper levels. The northern parcel would be residential. Major features or issues of Concept B are: ' • It provides convenient shopping for the adjoining residential neighborhoods and it has a strong "presence" on Brooklyn Boule- vard. • The developments would be interconnected by a direct and conve- nient pedestrian circulation system, which also provides links to the adjoining neighborhoods. ' • The plaza could be a focal feature for the development and an amenity for Brooklyn Boulevard. ' • Keeping 70th Avenue open would provide convenient access to the developments as well as to the Church, reducing traffic impacts on ' the adjoining residential areas. • The shared parking would be a benefit to the developments and the ' Church. Concept C ' Concept C (Figure 38) represents a multi-use and/or mixed-use develop- ment which is oriented to a plaza located, approximately, at the intersec- t tion of 70th Avenue and June Avenue. Concept C could include all the uses listed under Concept B. 1 In order to maximize density, the development includes a small parking ramp in the southeast corner. The ramp would not be necessary if the 79 Brooklyn Boulevard Streetscape Amenities Study IX. REDEVELOPMENT PROGRAM development intensity is lowered. In this alternative, 70th Avenue is kept open to traffic, but it also serves as a parking mall with perpendicular ' parking on both sides of the street. Major features or issues of Concept C are: • The plaza creates a strong focus for the developments. However, the focus is located away from Brooklyn Boulevard. Because the ' primary front facades would be oriented to 70th Avenue and the internal north-south pedestrian way, the impression will be that the developments have the "back sides" to Brooklyn Boulevard. • Although 70the Avenue is not expected to carry a large volume of traffic, the perpendicular parking on 70th Avenue might create a ' conflict with through-traffic. • There is less opportunity for shared parking with the Church, unless the parking ramp is designated for Church use. The distance from the ramp to the Church might be an issue. • This type of a development might prove to be hard to market, since many of the businesses would not have direct exposure to Brooklyn Boulevard or any other major roadway. The three alternatives for redeveloping the 69th Avenue area present three ' relatively distinct choices: • Concept A is closest to a typical suburban model where the developments ' are free-standing and fronted by large parking lots • Concept B represents a somewhat "traditional", or historic, model where ' the developments have a strong orientation to the street • Concept C represents a model of a small town or node where the major roadway has bypassed it and the focus no longer is on the roadway An evaluation of the three alternatives, resulted in the selection of Concept B as ' the most desirable model for development in the 69th Avenue area. Concept B represents one layout for developing the area. There might be numerous other configurations which could fit the desired model. ' Brooklyn Boulevard Streetscape Amenities Study so IX. REDEVELOPMENT PROGRAM The City should work with developers to achieve a plan which incorporates the characteristics represented by Concept B, yet ' is feasible to achieve in today's market environment. 71st Avenue Area Special Study ' The third special study area is located along 71st Avenue west of Brooklyn Boulevard. This area consists of a small residential "pocket", consisting of ' eleven single-family homes located between the medium-density housing complex to the north and west and Willow Lane School to the south. ' Forces/Issues Following is a description of the Forces/Issues (Figure 39), which impact this area: • Through Traffic. The through traffic on 71st Avenue/Perry Avenue is ' a negative impact on this single-family residential area. The City has considered various alternatives for discouraging through traffic. • Underutilized Sites. The area has a number of vacant parcels including the two parcels at the corner of Brooklyn Boulevard and 71st Avenue. In addition, the corner of the Willow Lane School site adjacent to Brooklyn Boulevard is underutilized and could be used for development. However, if this corner of the School site is developed, it may have to be replaced, ' in kind, somewhere else. 0 Incompatible Use. The single-family residence adjacent to Brooklyn ' Boulevard is too close to a high-traffic artery and should be removed. • Higher-Density Housing Potential. A close examination of the medium- ' density housing complex to the north reveals that there are two dead-end streets which are inconsitent with the rest of the development pattern. Itappears that the original plan must have included a loop extension to the ' south with additional units located along the school property. Redevelopment Concepts Concept A Concept A (Figure 40) represents a plan where the single-family residen- tial pocket is converted to medium-density housing. The medium-density ' Brooklyn Boulevard Streetscape Amenities Study 81 i .t Inre Borg f Y: .yam tinAltW m0y 11<xldcnnal - .-_ .—.• -. Prortmlry m Atmtlyn Buu1nW _ ..-,i Y H5 3, t r • '' �nom. x' �"�'S � ti, \,j � 0 ■�W CIA Figure 39: 71st Avenue Area Special Study - Forces /Issues r. LLrvuLl a lM�uiar:uLL .. Figure 40: 71st Avenue Area Special Study - Concept A Ar �' - � som xy�sn t •3 1lt. wu �s. hAtl� Aruukl)'u Auulcvard - - �h.w Xhoul . ro Figure 41: 71st Avenue Area Special Study - Concept B Brooklyn Boulevard Streetscape Amenities Study 82 IX. REDEVELOPMENT PROGRAM ' housing complex would gain a second access point at the 71st Avenue intersection and the circulation within the complex would be vastly ' improved, due to the completion of the loop system. Perry Avenuewould be terminated in a cul-de-sac at the edge of the Willow Lane School property. The Willow Lane School property would remain as is. This option resolves most of the issues and replaces a low-density residential develop- ' ment with a higher-density residential development that is much more compatible with the Brooklyn Boulevard environment. ' Concept B Concept B (Figure 41) also replaces all the single-family houses, except ' one, with higher-density developments. This option adds fewer medium- density housing units, but it maximizes the opportunities along Brooklyn Boulevard by creating a new, two-and-a-half-acre commercial parcel just south of the 71st Avenue intersection. This plan takes advantage of the underutilized corner of the Willow Lane School site by trading it for a same-size site on the north edge of the School property, which creates a better parcel configuration for the ' School. This option also resolves most of the site development forces and issues and it takes better advantage of the Brooklyn Boulevard frontage and ' exposure. ' Both options present reasonable redevelopment choices. A key issue for the 71st Avenue area is the question of funding and what process should be used to acquire the properties and redevelop the sites. Redevelopment Plan ' The P otential redevelopment parcels and their staging is illustrated in Figure 42: Corridor Redevelopment Plan. The recommended redevelopment staging priorities are based on current City plans and on the anticipated needs in the Corridor and are as follows: ' Brooklyn Boulevard Streetscape Amenities Study 83 `il ) `Cry — '1 '�•, - .` :%. % . 2Bl T, r t+ l 6C� i ,d 813 ON S"Ave t 1 iB - 4 y i � fi q Y 2• Legend ' Redevelopment Predominant Staging "and Use wtd t., ®orecr. `� ®m Rerualn (ixnmercral prim Hlghe-Derain ". Rcd—lopment vn ® Rceldcnctil Fspp��riled or Scconden �� "•..` � RedevelapmcN Ma CD WIINlionil 'q y ' Figure 42: Corridor Redevelopment Plan Brooklyn Boulevard Streetscape Amenities Study IX. REDEVELOPMENT PROGRAM • The first area to be redeveloped will be the stormwater pond/MTC Park- and-Ride the earl _ already Y and-Ride Facility Just south of I 694, which �s y ' planning stages. • The next highest priority for redevelopment is the sites north of I-694, ' because of the widening of Brooklyn Boulevard. The redevelopment of the parcels in this segment should ideally occur at the same time as the roadway widening project. That way there will be less disruption and the ' disruption in the area will occur for a shorter period of time. • The next group of sites to be redeveloped should be the ones in the central ' segment of the Corridor, between 58th Avenue and I-694. Redevelopment of these sites will help strengthen the commercial core. ' • The sites south of 58th Avenue should be redeveloped last. Following is a list and a brief description of the issues for each of the redevelop- ' ment sites identified in Figure 42. The grouping of redevelopment areas under one number, such as 2A and 2B, indicates redevelopment parcels with interrelated or similar issues that should be redeveloped in approximately the same timeframe. The issues and forces impacting the redevelopment areas are illustrated in greater detail in Figures 10 through 13. ' 1. Stormwater Pond and Park-and-Ride Facility South of I-694. This will require the acquisition of seven houses on Brooklyn Boulevard and fourteen houses all together. This will dramatically improve the traffic circulation on Brooklyn Boulevard by eliminating six residential curb cuts in the very critical roadway segment around 1-694. ' 2A. Commercial Redevelopment and Stormwater Storage Pond. This area needs to be redeveloped due to the widening of Brooklyn Boulevard. A ' stormwater pond should be developed as part of the redevelopment. The area is discussed in greater detail in the previous section under 1-694 ' to 69th Avenue Area Special Study. 2B. Commercial/Residential Redevelopment. This area needs to be redevel- oped due to the proposed widening of Brooklyn Boulevard. The key issues are: 1) the size of the redevelopment site and whether the housing along June Avenue should be included in the redevelopment project; 2) redevel- opment of the properties along Brooklyn Boulevard north of 70th Avenue; and 3) redevelopment of portions of the St. Alphonsus Church site. ' Brooklyn Boulevard Streetscape Amenities Study 85 IX. REDEVELOPMENT PROGRAM ' The area is discussed in greater detail in the previous section under 69th Avenue Area Special Study. 3. Redevelopment of Single-Family Residential Strip. The key issues are: 1) future widening of 69th Avenue; 2) size of parcel and inclusion of ' houses along Lee Avenue; 3) site access; and 4) buffering for the adjoin- ing residential area. 4. Commercial Use/Access. The key issues are: 1) land use and 2) access. 5. Redevelopment of Single-Family Residential "Pocket". This area could ' be redeveloped to mitigate some of the adverse impacts and to intensify the site utilization. ' The area is discussed in greater detail in the previous section under 71st Avenue Area Special Study. 6A. Commercial Redevelopment. This area could be redeveloped to a higher-density, multi-use or mixed-use development. This area has been identified as the potential "Town Center" commercial site, which would serve as a neighborhood-oriented commercial center and as the focal area of the Brooklyn Boulevard Corridor. 6B. Redevelopment Site. This area includes single-family houses along Brooklyn Boulevard which need to be redeveloped. The key issues are: ' 1) size of redevelopment site and how much of the single-family area should be considered for redevelopment; 2) whether the City Fire Station and Liquor Store should be included in the redevelopment; and 3) what the redevelopment program should be. This area has been identified as a higher-density residential area for the "Town Center" complex. Other uses could be retail or office. If the use is residential, the redevelopment could extend to Beard Avenue. If it is commercial, a boundary should be established at the back line of the houses facing Beard Avenue. ' 6C. Redevelopment of Single-Family Residential Strip. The key issues are: 1) size of the parcel and whether the houses along France Avenue should be included; 2) whether the access to Brooklyn Boulevard at Halifax Drive ' should stay; and 3) development program. This could be a higher-density residential or a commercial/office redevelopment project. ' 7. Redevelopment of Single-Family Strip and "Pocket". The key issues are: 1) because of its proximity to and visibility from 1-694, this would be Brooklyn Boulevard Streetscape Amenities Study 86 IX. REDEVELOPMENT PROGRAM ' an ideal commercial redevelopment site, however, it could also be a higher-density residential site; 2) size of redevelopment parcel and whether it should extend to Ewing Avenue; and 3) access to Brooklyn Boulevard. Because of the weaving distances and access requirements to the ramps at I-694, the only full access point would be at the signalized ' 65th Avenue intersection, which means that site access from the north would be on 65th Avenue/Ewing Avenue only. A right-in/right-out only access point might be permissible at the current France Avenue access ' point. 8A. Redevelopment of Single-Family Strip. This site would be an ideal location for a neighborhood-oriented small commercial center, which could service the residential areas to the west. The key issues are: 1) size of parcel; 2) whether houses along Drew Avenue should be included; and ' 3) site access. 8b. Redevelopment of Single-Family Strip. The key issues are: 1) size of ' site and 2) access at 61st Avenue. 9. Future of Single-Family Strip. The key issues are: 1) the corner site, which is zoned C-t, is too small a site for redevelopment; 2) the houses facing 59th Avenue are impacted by the traffic which uses 59th Avenue as a shortcut; and 3) whether this strip of land could be better utilized for commercial expansion. 10. Redevelopment "Pocket". This area includes a funeral home and some ' adjacent parcels which are underutilized, but which have been considered for the funeral home expansion. The area needs to be reevaluated, including the issue of traffic which uses 60th Avenue through the residen- tial neighborhoods as a route to the Little League Ballfields to the east. 11A. Redevelopment of Single-Family Residential Strip. In the future, because of its location and visibility, this area may be under great pressure to change. The key issues are: 1) its proximity to Brookdale Mall and ' great visibility from Brooklyn Boulevard make this area a potential candidate for commercial expansion (already, the area at 56th Avenue has been converted to office uses); 2) in spite of a great location and visibility, the area lacks good vehicular access (the only access point is at 55th Avenue); and 3) the existing uses are located on a frontage road which is separated from Brooklyn Boulevard by a buffer strip. Brooklyn Boulevard Streetscape Amenities Study 87 IX. REDEVELOPMENT PROGRAM In light of the recommendation, discussed in section V. Framework Plan, to concentrate new commercial developments in the central portion of the Brooklyn Boulevard Corridor north of 58th Avenue, this area should not ' be considered, at this time, for commercial uses. However, it might be considered for higher-density residential uses, which could be screened from Brooklyn Boulevard by introducing a landscaped screen along the frontage road, as discussed in section VIII. Improvement Program. ' 11B. Redevelopment of Single-Family Residential Strip. This area is similar to Redevelopment Area 11 A and the same issues and recommendations apply. 12. Redevelopment of Nursery Site. The nursery site has been considered for redevelopment to higher-density residential. This use would be appropriate for the location, especially, because it adjoins Happy Hollow Park. tThis Redevelopment Staging Plan represents a rough estimate of how redevelop- ment might occur. Site-specific conditions and development pressures may dictate otherwise. Although it is recommended that the City respond to the situations where the redevelopment pressures are the greatest, this Plan will help set some priorities and should help in situations where clear choices are not obvious. Brooklyn Boulevard Streetscape Amenities Study 138 X. IMPLEMENTATION ' Following is a brief outline of the key steps for implementing the streetscape enhancement program, the development guidelines, and the site redevelopment program. Implementation of streetscape Enhancements The City has already taken the first step in the implementation of the Streetscape ' Enhancement Program. An application was submitted by the City in March, 1994, for a$500,000 ISTEA grant to fund a portion of'the Phase 1 improvements (see Section VIII. Improvement Program). In addition to the ISTEA grant, additional funds will be required to fund the total Phase 1 project. Other funding which might be considered includes TIF funds and special assessments. The City will need to evaluate these funding options and establish a specific funding program. Future phases of the Streetscape Enhancement program will have to be funded in a similar way. Implementation of Development Guidelines Following is a description of potential methods for implementing the development guidelines, an overview of the status of discretionary controls, and recommenda- tions for implementation. ' Methods for Implementation Many of the design guidelines recommended for private developments, listed in ' section IX. Redevelopment Program, probably can not be accomplished by using only the zoning regulations and districts currently in place in Brooklyn Center. This is because the proposed development or design guidelines are either different ' (e.g., building setbacks), ambiguous (e.g., compatible building materials and colors) or novel (e.g., pitched roofs). Therefore, a new approach may be required. Available Methods Methods for implementing the recommended development and design guidelines could include one or more of the following: ' Brooklyn Boulevard streetscape Amenities study as X. IMPLEMENTATION • Peer and community pressure. 1 • Negotiated agreements as part of the development approval process. • Rezoning to another existing zoning district, especially the Planned Unit District. • Creation and use of new zoning districts. • Creation and use of an overlay zoning district for the Corridor. Overview of Zoning Controls Zoning regulations for the Brooklyn Boulevard Corridor (or any other location) should have the following characteristics if they are to withstand legal challenges. 1. Relationship to the Public Interest The public interest must be defined and agreed upon (at least in consensus). There must be a clear and understandable connection between the public interest and the regulations. The regulations ' must be written to serve the public interest but not overstep those bounds. ' The public interest is often a balance between the collective property rights of the community (e.g.. safety, economic develop- ' ment, beauty) and the private property rights of individuals (e.g., quiet enjoyment, economic return). The definition of the public interest must be negotiated in each case with those who would be affected by the regulations. Consequently, the level of acceptable regulation will vary from one situation to another. It may, for example, be lower in a rural setting than an urban neighborhood with historic and architectural importance. 2. Due Process The public interest must be defined through a process that is logical, is reasonable, and involves the public in a. meaningful and ' constructive way. Plans and policies should serve as the basis of the regulations, and the public should be involved in their prepara- Brooklyn Boulevard Streetscape Amenities Study 90 iX. IMPLEMENTATION tion, review and adoption. Any policies, maps, illustrations or other guiding features of such plans should have minimal ambigu- ity if they are referenced in the regulations and used to give direction or wisdom to the interpreters of the regulations. The regulations must be administered in a way that treats each affected ' landowner fairly relative to other landowners. Interpretations must not be "arbitrary and capricious." Approaches of Other Communities A survey was conducted of other suburban Twin Cities communities to ' discover what approaches they are taking to corridor design and planning regulations. Most have corridor plans in place and are using standard zoning districts and site plan review. Tax increment financing is used to assist redevelopment in many cases. Richfield expects to adopt overlay zones for their several corridors. A description of the various approaches ' is presented in Table 3. Status of Discretionary Controls Over the years, courts have upheld the right of communities to pass zoning laws that go beyond nuisance control and protect community aesthetics. While local governments must still proceed carefully in enacting and implementing aesthetic- based laws (just as they must with any land-use regulation), particularly where they might impinge on forms of communication protected by the First Amend- ment's guarantee of freedom of speech (as in sign ordinances), they have great leeway in acting to protect community aesthetics. There has also been a trend toward zoning regulations giving greater discretion to the public. Early zoning was rigid and specified about what was allowed and where. The system was supposed to be neat, orderly, and efficient. While continuing to pay homage to conventional zoning wisdom, communities have modified many of its elements and tacked on a whole, often uncoordinated, array of devices that allow greater flexibility to developers and/or give greater power ' to the public. What exists now is the widespread use of "wait and see" techniques that provide communities with an opportunity to make final development decisions at the time development occurs. The old flexible techniques -- variances, special use permits and rezonings -- remain, but their use has been expanded. To them have been added many new devices designed to accommodate special development consider- ations. Such techniques include: Brooklyn Boulevard streetscape Amenities Study 91 X. IMPLEMENTATION ' Table 3 Survey of Land Use Controls and Incentives in Arterial Corridors of the Twin Cities Site Corridor Zoning Plan Plan in TIF City Corridor Used Review Effect Used Comments Brooklyn Brooklyn Stan- Yes Yes Yes The City is not satisfied with the Park Boule- dard economic development or aesthetic ' vard districts results achieved in recent years. Seeking to implement a major land- scaping effort consistent with the general corridor plan. ' Crystal Co. Propos- Yes Yes; Pro- The recent corridor plan is expected Road 81 es uses 1992. posed to be implemented using PUD pro- of PUD cess and site plan review for subjec- t tive interpretation and application of the corridor plan during redevelop- ment. Crystal Bass Stan- Yes Yes, Yes Corridor plan has been implemented Lake dard 1985. using extensive public property Road districts acquisition and resale with design agreements; major public invest- ments in lighting,landscaping and ' roadways. Robbins- Co. Stan- Yes No Yes Site planning control has been exer- dale Road 81; dard cised through City financial partici- West districts pation in redevelopment. The City Broad- staff feel that the current zoning way pattern is not appropriate in all cases and that redevelopment has succeed- ed in spite of the zoning controls. New 42nd Stan- Yes Yes Yes The corridor plan includes public Hope Avenue dard and private design guidelines. Pub- districts lic lighting and landscaping im- provements were accomplished with TIF. Private aesthetic improvements during redevelopment(or modern- ization)are promoted with TIF funds and negotiation. Zoning was ' changed from a mixture of commer- cial,industrial and residential to a "shopping center"distric. Brooklyn Boulevard Streetscape Amenities Study 92 1 X. IMPLEMENTATION iTable 3 (Continued) Site Corridor ' Zoning Plan Plan in TIF City Corridor Used Review Effect Used Comments Fridley Univer- Stan- Yes Yes, No The City has not accomplished many sity Ave- dard 1985 aesthetic improvements nor made nue districts any extraordinary strides with eco- nomic development along University Avenue. Possibility of LRT has put streetscape improvements on hold. Council has taken a conservative approach to the corridor. Richfield Lyndale, Stan- Yes Yes Yes Richfield is updating its comprehen- ' Penn, dard sive plan and devising specific Nicollet, districts guidelines that will address parking, 66th St. now; access,signage,landscaping,lighting expect and site planning for each of several ' to use corridors. The City expects to use overlay overlay zoning to implement the in fu- guidelines of each of these planning ture. districts,which will be individually tailored for each corridor. The cur- rent underlying zoning will be re- tained. St.Louis High- Stan- Yes Yes, Yes Some public landscaping and light- Park way 7 dard 1984. ing improvements have been made districts using TIF. Private improvements have been accomplished during city- assisted redevelopment. Plan ele- ments have been used to guide pri- vate improvements. St.Louis Excelsior Stan- Yes Yes, Yes Excelsior Boulevard has a mixture of Park Boule- dard 1990. commercial and residential land vard districts uses,often with shallow lots abut- ting single-family neighborhoods. The roadway is five-lanes with a raised median. The corridor is con- ' sidered the city's"downtown." Pre- existing zoning is being used. The zoning ordinance was completely overhauled in 1992. Some lighting improvements have been installed ' using TIF,and landscaping improve- ments are contemplated. A major medical-commercial mixed-use pro ject has been approved near TH 100 ' in the TIF District. Brooklyn Boulevard Streetscape Amenities Study 93 X. IMPLEMENTATION Table 3 (Continued) Site Corridor ' ZonIng Plan Plan In TIF City Corridor Used Review Effect Used Comments St.Louis Minn- Stan- Yes No Yes A small portion of Minnetonka Park etonka dard Boulevard was addressed in a 1990 ' Boule- districts plan. There have been no special vard lighting or landscaping improve- ments nor any extraordinary public effort to redevelop land in this corridor. Apple Cedar Stan- Yes Yes Yes The-City has devoted large amounts Valley Av. and dard of TIF and other funds to sidewalk, CR 42 districts lighting and landscaping throughout their"downtown'district around this intersection. TIF incentives have also been used to implement private improvements consistent with the ' plan. Maple- White Stan- Yes No No The current approach of careful wood Bear Bard administration of zoning districts Avenue districts through site plan review is said to be working acceptably. The City would like to hold the line on the amount of land zoned for commer- cial use in this corridor. Eden TH 212 Stan- Yes No No This corridor has a variety of very Prairie near dard attractive,auto-oriented commercial Prairie districts developments. They feature exten- t Center sive landscaping and berming as a Drive result of the City's strong landscap- ing ordinance and a very good mar- ket. Signs are also very attractive because of municipal controls. White High- Stan- Yes Yes Yes The City has replaced an abandoned Bear Lake way 61 dard railroad siding area with an attrac- t districts tive bank and a City hail. Deterior- ated property has been cleared for a park along the lake. The landscap- ing,lighting and other improvement- s proposed in the corridor plan have not yet been installed. Some bike- ped improvements have been done. Minne- I-394 Special Yes Yes No Minnetonka uses its Planned 1-394 ' tonka District District to regulate land develop- ment in this corridor to(1)control the amount of PM peak-hour traffic that each site may generate and(2) establish higher site development standards than normally required. Brooklyn Boulevard Streetscape Amenities Study 94 jX. IMPLEMENTATION ' • Overlay zone. A mapped zone that imposes a set of requirements in addition to those of the underlying district. The additional requirements ' can be the guidelines adopted as part of a corridor or other plan. The ordinance can be written to allow City discretion in the application of the requirements so that special circumstances can be addressed and trade-offs ' made. A major benefit of an overlay district, compared to "standard" districts, is that it avoids the need to create several new standard districts for the various elements of a corridor plan. ' • Floating one. A floating zone is the same as a conventional zone, g g except that it is not designated on the zoning map. It is affixed to a ' particular parcel by amending the zoning map, following the approval of a landowner's application. ' • Planned-Unit Development Ordinance. This allows variations in many of the traditional controls in exchange for a higher quality result. This technique is in place in Brooklyn Center. 0 Conditional Rezoning. Conditional Rezoning is a change in zoning given in exchange for a promise to develop the land in a particular way. Each of these control devices allows the community some degree of discretionary ' authority to respond to the realities of development by postponing its decisions until development is about to occur and then, in response to a proposal, to establish in detail how the land is to be developed. These zoning techniques could be called special public interest zones. They fill gaps where other controls are ineffective. They are often broad and flexible devices, legally grounded in the requirements that zoning regulations must have a substantial relation to the public interest. The key requirement for implement- ing these special zoning techniques is that there be an expressed and demonstrated special and substantial public interest and that lawful zoning controls be used to promote and defend the public interest. ' Recommendations ' The recommendations for implementing the Development Guidelines are as follows: 1. Establish a New Brooklyn Boulevard Corridor Overlay Zoning District. The Corridor Overlay Zoning District will supplement the current zoning regulations, overriding the current regulations when there ' Brooklyn Boulevard Streetscape Amenities Study 95 X. IMPLEMENTATION is a conflict. It should include a formal list of the private development design guidelines, as presented in section IX. Redevelopment Program, ' supplemented by the applicable illustrations. The Corridor Overlay Zoning District will allow the City to express broad design aims and achieve them through a negotiated site plan review process. 2. Amend the Comprehensive Plan. The City's Comprehensive Plan should be amended to bring the Land Use Plan into conformance with the ' Brooklyn Boulevard Corridor Concept Plan. 3. Amend the City Zoning Map. The City's Zoning Map should be ' amended to reflect the changes to the Land Use Plan and to incorporate the proposed Brooklyn Boulevard Corridor Overlay District. ' Implementation of Site Redevelopments ' The implementation of the redevelopment of the sites identified in Figure 34: Corridor Redevelopment Plan can proceed on many fronts. Following are a few of the techniques the City could use to begin the redevelopment process: 1. Housing Acquisition. The City should begin the acquisition of the single- ' family houses along Brooklyn Boulevard, north of Highway 100, under existing City programs. The houses could be acquired for immediate redevelopment, assuming a developer has been identified. The acquired ' sites could also be "land banked" for future redevelopments. 2. Establishment of TIF Districts. The City should select the most critical ' redevelopment areas, as defined in section IX. Redevelopment Program, and start establishing TIF Districts in order to promote and assist the redevelopment process. ' 3. Identification and Selection of Developers. The City should issue an RFP (Request for Proposal) for each project, to identify potential develop- , ers for the redevelopment areas. Based on their experience and their ability to meet the City's needs, the City should select the most qualified developers to prepare redevelopment proposals. ' 4. Coordination and Implementation of Redevelopments. In a pub- lic/private partnership with the developers, the City/Developer Team(s) rcan start refining and finalizing the site development programming, financing, and redevelopment scheduling and construction. ' Brooklyn Boulevard Streetscape Amenities Study 96