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PIEDMONT
REDEVELOPMENT PLAN
PREPAREDBY: APPROVEDBY:
CityofLincoln,Nebraska PlanningCommission:January8,2014ChrisBeutler,Mayor CityCouncil:January27,2014
UrbanDevelopmentDepartmentDaveLandis,Director
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TABLE OF CONTENTS Introduction.........................................................................................................................1 PlanRequirements...................................................................................................................................................................2
ExistingConditions............................................................................................................4 LandUse.......................................................................................................................................................................................4
Zoning ..........................................................................................................................................................................................5
Parks&RecreationFacilitiesandTrails.........................................................................................................................5
Transportation..........................................................................................................................................................................7
PublicUtilities............................................................................................................................................................................9
HistoricSignificance.............................................................................................................................................................10
Blight&SubstandardDeterminationStudy...............................................................................................................11
IdentifiedIssues.....................................................................................................................................................................13
RedevelopmentPlan......................................................................................................14 LPlan2040:GuidingPrinciples........................................................................................................................................14
PiedmontAreaRedevelopmentActivities..................................................................................................................16
FutureLandUse.....................................................................................................................................................................19
RedevelopmentProcesses.................................................................................................................................................19
EstimatedExpenditures.....................................................................................................................................................20
ConformancewithComprehensivePlan.....................................................................................................................20
Financing...................................................................................................................................................................................20
AppendixA:CostBenefitAnalysis.............................................................................22
LISTOFEXHIBITSExhibit1:RedevelopmentAreawithinCityContext.......................................................................................................1
Exhibit2:ExistingLandUse......................................................................................................................................................4
Exhibit3:ExistingZoning...........................................................................................................................................................5
Exhibit4:Trail,PublicTransportationLines,andParkland........................................................................................6
Exhibit5: OriginalPiedmontPlat,1927............................................................................................................................10
Exhibit6: ProposedSitePlan...............................................................................................................................................17
Exhibit7: FutureLandUse–LPlan2040..........................................................................................................................19
LISTOFTABLESTable1:ExistingLandUse.........................................................................................................................................................4
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INTRODUCTION ThePiedmontRedevelopmentPlanisaguideforredevelopmentactivitieswithintheRedevelopmentArea.Exhibit1showsthelocationoftheareawithinthecontextofthecityofLincoln.SouthCotnerBoulevardservesastheeasternboundaryoftheRedevelopmentArea,withCStreetasthenorthboundary,AStreetasthesouthboundary,and50thStreetasthewestboundary.Theareacoversapproximately8.6acresofland,whichisevenlysplitwith4.2acresofcommercialuseand4.4acresofstreetright‐of‐way.Theareaislegallydescribedas:Lots1and2,MarkPlaza,andalladjacentrights‐of‐wayincludingallintersections;alllocatedinSection29‐10‐07,LancasterCounty,Nebraska.
ThePiedmontAutoCarefacilityisatthesouthernportionoftheRedevelopmentArea,butthemainfocusofisthePiedmontShoppingCenter.TheRedevelopmentAreahasshownsignsofdeclineoverthelastfewyears.Builtin1956,theshoppingcenterreceivedmajorimprovementsin1977andsurfaceimprovementsin1997.Theshoppingcenter,whichis49.6%vacant,waspurchasedbyanewbuyerinJune,2013,whoquicklyconvenedseveralmeetingswithneighborhoodresidentstodiscussthefutureofthecenter.IdentifyingtheneedtoredevelopthisarealedtoaBlightandSubstandardDeterminationStudy,whichconfirmedthenumberanddegreeofblightingandsubstandardfactors.TheStudywascompletedinAugust,2013.
TheCityrecognizescontinuingblightanddeteriorationasathreattothestabilityandvitalityofthearea.Revitalizationeffortscannotreasonablyoccurwithoutpublicaction.ThePiedmontRedevelopmentPlanprovidesaguideforthepublicandprivatepartnersasredevelopmenteffortsmoveforward.
Exhibit1:RedevelopmentAreawithinCityContext
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PLAN REQUIREMENTS RedevelopmentactivitiesareguidedbyCommunityDevelopmentLaw,Neb.Rev.Stat.,Section18‐2101,et.seq.(asamended).Thestatutesindicatethegoverningbodymustdeclaretheprojectareasubstandardandblightedinordertopreparearedevelopmentplan.
TheCityhasauthorizeditsUrbanDevelopmentDepartmenttoactastheredevelopmentauthorityunderapplicableLaw.TheUrbanDevelopmentDepartmenthasdevelopedaplanforguidingappropriateprivateandpublicresourcesto:
• eliminateorpreventthedevelopmentorspreadofurbanblight;
• encourageurbanrehabilitation;
• providefortheredevelopmentofsubstandardandblightedareasincludingprovisionforthepreventionofthespreadofblightintoareasofthemunicipalitywhicharefreefromblightthroughdiligentenforcementofhousing,zoning,andoccupancycontrolsandstandards;
• rehabilitationorconservationofsubstandardandblightedareasorportionsthereofbyre‐planning,removingcongestion,providingparks,playgrounds,andotherpublicimprovementsbyencouragingvoluntaryrehabilitationandbycompellingtherepairandrehabilitationofdeterioratedordeterioratingstructures;and
• clearandredevelopsubstandardandblightedareasorportionsthereof.
TheCommunityDevelopmentLawsection18.2111definestheminimumrequirementsofaredevelopmentplanasfollows:
“Aredevelopmentplanshallbesufficientlycompleteto indicate itsrelationshipto definite local objectives as to appropriate landuses, improved traffic, publictransportation, public utilities, recreational and community facilities and otherpublic improvements,andtheproposedlandusesandbuildingrequirementsintheredevelopmentprojectareas...”
Section18.2111alsooutlinessixelementsthatmustbeincludedinallredevelopmentplans:
1. Theboundariesoftheredevelopmentprojectareawithamapshowingtheexistingusesandconditionoftherealpropertyarea;
2. Aland‐useplanshowingproposedusesofthearea;
3. Informationshowingthestandardsofpopulationdensities,landcoverage,andbuildingintensitiesintheareaafterredevelopment;
4. Astatementoftheproposedchanges,ifany,inzoningordinancesormaps,streetlayouts,streetlevelsorgrades,orbuildingcodesandordinances;
5. Asiteplanofthearea;
6. Astatementastothekindandnumberofadditionalpublicfacilitiesorutilities,whichwillberequiredtosupportthenewlandusesintheareaafterredevelopment.
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Inmakingtherecommendationtoapprovethisplan,theUrbanDevelopmentDepartmenthasconsideredthelandusesandbuildingrequirementsofthePiedmontRedevelopmentArea;generallylocatednorthofS.CotnerBoulevard,southofCStreet,eastofN.50thStreetandwestofAldrichRoad;anddeterminedtheyareinconformancewiththegeneralplanforredevelopmentinthecityandrepresentacoordinated,adjusted,andharmoniousdevelopmentofthecityanditsenvirons.
Thesedeterminationsareinaccordancewith:• presentandfutureneedstopromotehealth,safety,morals,order,convenience,
prosperity;• thegeneralwelfare;and• efficiencyandeconomyintheprocessofdevelopment.
Factorsconsideredinthedeterminationincludedamongotherthings:• adequateprovisionfortraffic,vehicularparking;• promotionoffiresafetyandpreventionofotherdangers;• adequateprovisionforlightandair;• promotionofthehealthfulandconvenientdistributionofpopulation;• provisionofadequatetransportation,water,sewerage,andotherpublicutilities;• schools,parks,recreationalandcommunityfacilities,andotherpublicrequirements;• promotionofsounddesignandarrangement;• efficientexpenditureofpublicfunds;and• preventionofinsanitaryorunsafedwellingaccommodationsorconditionsofblight.
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EXISTINGCONDITIONSLandUseThePiedmontRedevelopmentAreaconsistsof8.6acresofland.Theareaissplitevenlywith4.2acresofcommercialuseand4.4acresofstreetright‐of‐way.ThePiedmontShopsaretheprimarypropertieswithintheRedevelopmentArea.ThemainarterialstreetisS.CotnerBoulevard,whichservesastheeasternboundaryoftheRedevelopmentArea.CStreetisthenorthboundaryand50thStreetservesasthewestboundary.
Residentiallanduseexiststotheeast,west,andnorthoftheRedevelopmentArea.SouthoftheRedevelopmentAreaisBryanHealthMedicalCenter’sEastCampus.
Table1:PiedmontRedevelopmentArea–ExistingLandUse
Commercial 4.2Acres 48.8%
StreetRight‐of‐Way 4.4Acres 51.2%
TotalArea 8.6Acres 100%
Exhibit2:CurrentLandUse
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ZoningAmajorportionoftheRedevelopmentAreawasrecentlyre‐zonedasB‐3PlannedUnitDevelopment.Thiszoningdesignationprovidesforlocalcommercialusesinestablishedretailcentersofredevelopingneighborhoods.
ThesouthernportionoftheRedevelopmentAreacontinuestobezonedB‐1.Thiszoningclassificationisappropriatefortheexistinglanduseandisintendedtoprovideastableareaoflocalretailrelatingtoexistingcommunitiesandexistingneighborhoods.Itprovidesforfunctionalbusinessusestoservethosecommunitiesandneighborhoods.Dwellingsarepermittedonlyabovethefirstfloor.
ParksandRecreationalFacilitiesandTrails
• Trails
TherearenodedicatedbiketrailsdirectlyintheRedevelopmentArea.EastoftheRedevelopmentAreaat52ndStreetandwestoftheareaat44thStreet,thereareon‐streetbikeroutesthatrunnorth‐south.Also,approximatelyfiveblockssouthoftheRedevelopmentAreaandjustsouthoftheBryanHealthMedicalCenterthereisaneast‐west,on‐streetbikeroute.
Exhibit3:Zoning
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Exhibit4:Trails,PublicTransportationLinesandParkland
No Rail lines or Trails in or near the Redevelopment Area
Bryan Health Medical Center
Lefler Middle School
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• Parks
PiedmontParkisanineacreparklocatedat50th&CStreets,acrossthestreetfromthePiedmontShoppingCenter.Theparkhastwotenniscourtsandisanopenareausedforsoccerandotheroutdoorrecreation.
KontrasPark,locatedacrossCotnerBoulevardtotheeastatCotnerBoulevardandAldrichRoad,isa1.12acrepocketparkthatfeaturesashadestructurewithbenchesandenhancedlandscaping.Artworkisalsopartofthelandscapefeaturesofthepark
Transportation
• Traffic
CotnerBoulevardisatwo‐wayarterialstreetwithacenterturnlaneandtheprimarystreetthatservesthePiedmontRedevelopmentArea.AverageDailyTrips(ADT)countsonCotnerBoulevardareapproximately6,530vehicles,accordingtoCityofLincolnPublicWorkstrafficcountsfor2010.Thewestboundaryoftheareais50thStreet,whichisclassifiedasalocal/neighborhoodstreet,asisthenorthboundary,CStreet.AStreet,justsouthoftheRedevelopmentAreaisanarterial,withanADTofapproximately11,000vehicles.TheonlytrafficsignalisatAStreetandCotnerBoulevard.
• AccessandParkingIssues
FromtheRedevelopmentArea,therearetwoaccesspointstoCotnerBoulevardandoneaccessto50thStreet,butthereisnoaccesstoCStreet.On‐streetparkingisallowedon50thStreetandCStreetinadditiontothe199parkingstallsinPiedmontShoppingCenterparkinglot.
OneoftwoaccesspointstoCotnerBoulevardfromtheRedevelopmentArea
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However,thereisnodirectandsafepedestrianmovementfromCotnerBoulevardorAStreettothePiedmontShops.
• PublicTransportation
ThePiedmontRedevelopmentAreaisservedbybusroute#43Normal(seeExhibit4),whichtravelson48thStreetto/fromSouthStreettoRandolphStreet.The#40HeartHospitalrouteisafewblockssouthofthePiedmontshoppingarea;theclosestitcomestotheareais48th&SumnerStreets.
• StreetConditions
TheRedevelopmentAreafrontstwostreetsthatwereratedin“fair”conditionintheBlightandSubstandardDeterminationStudy.BothCotnerBoulevardand50thStreethaveasphaltsurfacingwithsignificantcracking,settling,anderodededges.Thecurbandguttersadjacenttothestreetswereratedin“poor”condition.
• SidewalkandPedestrianActivity
Theonlyexistingstandard‐widthsidewalkwithintheRedevelopmentAreaislocatedalongthenorthsideofCStreet.Narrow,at‐curbsidewalksalongCotnerBoulevardandAldrichStreetputpedestriansatrisk.TheissueiscompoundedbythenumberofchildrenwalkingtoLeflerMiddleSchool,whichislocatedjustnorthwestoftheRedevelopmentArea.TheprivatesidewalkswhichservethePiedmontShopsarecracked,settledanddangerous.
Narrow,at‐curbsidewalksalongCotner&Aldrichputpedestriansatrisk
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StreetLayout
TheintersectionwherethediagonalportionofCotnerBoulevardmeetsbothAStreetand50thStreetisatraffichazardsincethiselongatedintersectionhasthreestreetsintersectingatthesamelocation.Trafficconcernsarecompoundedbythepotentialofspeedingvehiclesthatimpactthesafetyofpedestrianscrossingmultiplelanesoftraffic.TheexistingstreetlayoutcanbeaproblemforthefirestationlocatedacrossCotnerBoulevardtotheeastoftheRedevelopmentArea.
• Streetscape
TherearenostreetscapeamenitieswithintheRedevelopmentArea.Animplementedstreetscapeplanaspartoffutureredevelopmentwouldbenefittheneighborhood.
PublicUtilities
• WaterSystem
Thewatermainon50thStreetwasinstalledin1946andhasexperiencedrepeatedbreaks.Itisscheduledforreplacementwithinthenextfiveyears
• SanitarySewerSystem
VitrifiedclaypipesewermainswereinstalledintheRedevelopmentAreain1920.Whileadequatelysizedforthearea,vitrifiedclayisnolongerusedforsewermains.Thesesewermainsshouldbelinedwithapolyvinylchloride(PVC)“innersleeve”inthenearfutureorreplacedaltogether.
• WatershedManagement
ThePiedmontRedevelopmentAreaislocatedwithintheAntelopeCreekWatershed.Thereareapproximately90acresofprimarilyresidentialdevelopmentthatcontributedrainagemostlyfromthenorthandnortheast.StormwaterrunoffflowsoverlanduntilitiscollectedbyaseriesofinletsandconveyedthroughanenclosedstormdrainsysteminasouthwesterlydirectionalongCotnerBoulevard.ThisstormsewersystemeventuallydischargestoAntelopeCreekatCotnerBoulevard,southofNormalBoulevard.TherearenoknownfloodplainsorwetlandswithintheRedevelopmentArea.
WithintheRedevelopmentArea,thepointofgreatestelevationisnearS.50th&CStreets.Fromhere,themajorityofstormwaterrunoffentersthestormdrainsystemanddrainseastalongCStreet,thensouthalongAldrichRoadforashortsegment,andfinallysouthintoa48"RCPstormsewertrunklineinCotnerBoulevard.ThetopographywithintheprivatecommercialareagenerallyslopestothesouthcausingthemajorityofrainfalltorunofftothesouthuntilenteringthepublicsystemthroughaseriesofcurbinletsalongCotnerBoulevard.Aportionofthestormsewerrunoffmayalsoflowinto,andthrough,anexistingprivatesystembeforetappingintothepublicsystem.
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Apreliminaryengineeringstudyevaluatedthisdrainagebasinin2008andfoundtheretobeseveralstormsewerpipesthataredeficientduetotheirinadequatesize.Thedeficientpipes(locatedinCStreet,AldrichRoad,andCotnerBoulevard)donotconveyenoughstormwatertomeetCityDesignStandardsandtheymaycontributetoincreasedpotentialforpondinginthestreetrightofway.
ACapitalImprovementProject(CIP#AC10‐01)hasbeenidentifiedtoreplacedeficientpipesandinletsalongCotnerBoulevard,generallyfromjustnorthofAStreet,toFranklinStreet.ThisCIPprojectisnotcurrentlyscheduledtooccurinthenearfutureduetoitsrelativelowpriorityscorecomparedtootherstormsewerprojects.
• StreetLighting
Thestreetlightson50thStreetareonwooddistributionpolesandfedwithoverheadwireandareconsideredtobeingoodcondition(installedin1988).ThestreetlightsonCotnerBoulevardareonsteelpolesfedwithundergroundwireandareinfaircondition(installed1975),andthestreetlightsonAldrichStreet,onsteelpolesfedwithundergroundwire,areinfaircondition(installedin1976).
HistoricSignificanceThePiedmontsubdivisionwasplattedin1927bytheStuartInvestmentCompany(CharlesStuart,President).ThatwasthesameyearCharlesStuartbuilttheStuartBuildingat13th&PStreetsdowntown.
Asawhole,Piedmontisaresidentialsectioncharacterizedbylargelots,largehouses,andagradualpatternofdevelopmentsothatbuildingstylesfrommostdecadesofthe20thcenturyarewell‐represented.
Whiletheoverallplanisgenerallyanextensionofthegridplanoftheoriginalcity,CotnerBoulevardcreatesastrongdiagonalfromNEtoSWacrossthesubdivision,andadditionaldiagonalentrypointswereplannedattheNWandSEcorners,aswellasnearthecenterofthesouth(AStreet)boundary.Theresultisanintroductionofconsiderablevarietyinthesizesandshapesoflots,andaratherhighdegreeofvariationalongthestreetsofwhatisgenerallyagridplan.Thereisalsojustoneeast‐weststreetextendingallthewaythroughthesubdivision(labeledasEStreet,nowcalledValleyRoad),creatinganorth‐southorientationto
Exhibit5:OriginalPiedmontPlat,1927
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thesubdivisionasawholeandaratherinsularqualitytothearea,heightenedbythelaterclosureoftheSEdiagonalentrancefromthebusy56th&Aintersection.
Piedmont’soriginaldeedsalsocovenantedtoStuartInvestmentCo.rightstoapprovebuildingdesignsanddecreedaratheruniquemethodoflocatinghousesontheirparcels.Ratherthanspecifyingsetbacksorspecificyardrequirements,theoriginalcovenantsrequiredthatthe“deadcenter”ofthehousebelocatedwithin15feetofthe“deadcenter”ofthelot.Theeffectistolocateeachhouserelativetoitsownparcel,ratherthantoafixedfrontyardline,creatingadegreeofirregularityasthestreetscurveandthelotdimensionsvary,andcreatingdeepfrontyards.Thecovenantsfurtherrequiredthatthosefrontyardsbemaintainedsolelyaslawns,andthat“noweeds,underbrush,orotherunsightlygrowthsshallbepermittedtogroworremainanywhereuponsaidpremises.”
StuartInvestment’soriginalcovenantsalsoincludedracerestrictions,stating“FortheperiodoffiftyyearsfromthedateofthisdeednopersonofotherthantheCaucasianrace,shallbeorbecomethegranteeorlesseeofsaidproperty,or,exceptasaservantinthefamilylivingthereon,begrantedtheprivilegeofoccupyingthesame.”SimilarrestrictionswerefirstimposedintheSheridanParkareain1916byHarveyRathboneandhadbecomecommoninLincolnby1927,althoughsomesimilarlyprestigioussubdivisions,suchasWoodshire,didnotusethem.TheLincolnCityGuidebytheWPA’sFederalWriters’Project,issuedin1937,describedPiedmontas“oneofthenewestandmostexclusiveoftheresidentialdistricts.Fromthethreemainentrances,eachflankedbypillars,theboulevardswindbetweenrowsofelmandlocusttrees,acrosshilly,severelylandscapedcountry.Thehousesarefarapart,variedinstyle.Street‐lightglobesarelantern‐shaped.”Onlyoneofthemonumentalentrancetreatmentsremains,attheNWcornerwhereFallCreekRoadentersoffRandolphStreet.
Anotheraspectofthesubdivisionwastoleavethreeblocks—14,15,and16—aswholeblocks,notsplitintosmallerlots.Blocks15and16becameparklandasPiedmontParkandKontrasPark,respectively.Thethirdblock(originallyBlock14)boundedbyCotnerBoulevardandAldrichRoad(formerly52ndStreet)ontheeast,CStreetonthenorth,and50thStreetonthewest,begantobedevelopedin1949withtheconstructionoftheautomotiveservicestationatthesouthernendofthesite.Thefirststoreswereaddedin1952,designedbyS.A.SolheimanddevelopedbySunshineHomes,Inc.Constructioncontinuedincrementallythroughabout1966,witharchitecturalservicesprovidedbyRobertB.Gibbbeginningin1961.Asbuilt‐out,theL‐shapedplanlinesthenorthandwestedgesofthetriangularparcelwithshops,facingalargeparkingareaalongCotnerBoulevard.
Blight&SubstandardDeterminationStudyForaprojecttobeconsideredeligibleforredevelopmentinLincoln,theareamustqualifyasboth“Blighted”and“Substandard”basedonNebraskaCommunityDevelopmentLaw.
ThePiedmontRedevelopmentAreaBlightedandSubstandardDeterminationStudywasundertakentodeterminewhetherexistingconditionswarrantdesignationoftheareaas
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blightedandsubstandard.ThestudyincludesformalinvestigationoftheexistenceandextentofblightingandsubstandardfactorsasoutlinedintheNebraskaCommunityDevelopmentLaw.
• Process
Theconsultant’sevaluationincludedadetailedexteriorstructuralsurveyofthePiedmontShops.Threemajorstructuresreceivedexteriorinspections,includingtheservicestationandtwostrip‐mallstructures.Inaddition,aparcel‐by‐parcelfieldsurveywasconductedandresearchonownershipandfinancialassessmentofpropertieswasconducted,includingpublicrecordresearchtodetermineiftaxdelinquenciesexistedinthePiedmontRedevelopmentArea.
• AnalysisFindings
AllfourofthesubstandardfactorsidentifiedinNebraskaCommunityDevelopmentlawrepresenta“strongpresence”intheRedevelopmentArea.Thefactorsdeterminedtohavea“strongpresence”are:
o Dilapidated/deterioration.Thethreemajorstructuresinspectedwereidentifiedasdeterioratingwithmajordefects.
o Ageorobsolescence.Twoofthethreemajorstructureswerebuiltover40yearsago(priorto1973).
o Inadequateprovisionforventilation,light,air,sanitationoropenspaces.Amajorityofthewatermainsareover60yearsofage.Thewatermainalong50thStreetwasbuiltin1946,hashadrepeatedbreaks,andwillbereplacedwithinthenextfiveyears.Thesewermainsareapproximately93yearsofageandmadeofoutmodedmaterials.Theageoftheseutilitiesmayrequiremorefrequentmaintenanceand/orreplacement.Masonrybuildingswithcombustiblewoodenstructuralelementswerefoundtobedeterioratingtoa“major”extentandinneedofstructuralrepairandfireprotection.
o Existenceofconditionswhichendangerlifeorpropertybyfireorothercauses.
Sevenofthe12blightfactorsidentifiedinNebraskaCommunityDevelopmentLawwerepresentwitha“strongpresence”andtwowerepresenttoa“reasonablepresence”extent.Theblightfactorsdeterminedtohavea“strongpresence”are:
o Substantialnumberofdeterioratedordilapidatedstructures.
o Existenceofdefectiveorinadequatestreetlayout.
o Insanitaryorunsafeconditions.
o Deteriorationofsiteorotherimprovements.
o Existenceofconditionswhichendangerlifeorpropertybyfireorothercauses.
o Otherenvironmentalandblightingfactors.
o Additionalblightingconditions:averageageoftheresidentialorcommercialunitsintheareaisatleastfortyyears.
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Theblightfactorsdeterminedtohavea“reasonablepresence”are:
o Faultylotlayoutinrelationtosize,adequacy,accessibilityorusefulness.
o Impropersubdivisionorobsoleteplatting.
IdentifiedIssuesBasedonthereviewofexistingconditions,thefollowingissuesandconcernswereidentifiedandshouldbeconsideredinconjunctionwiththeGuidingPrinciplesofthisdocumenttoprovideaframeworkfordeterminingprojectsinthePiedmontRedevelopmentPlan.
ThethreestreetintersectionofAStreet,50thStreetandCotnerBoulevardisatraffichazardanddangeroustopedestrianscrossingthestreet.
LackofmunicipalsidewalksintheRedevelopmentArea.SidewalkswithintheRedevelopmentAreaareinpoorcondition.Curbsandguttersareinpoorcondition.
AccesspointstothePiedmontShopsareinsubstandardcondition.Rearaccessdrivesalong50thStreetandloadingdocksaresubstantiallydeteriorated.
Watermainalong50thStreetis60+yearsofage.Sewermainsare90+yearsofage.
LackofstreetscapealongtheRedevelopmentAreaboundary.
Below:ImagefromBlight&SubstandardDeterminationStudy:Deteriorationofloadingdocks
Above:ImagefromBlight&SubstandardDeterminationStudy:Unsafeconditions
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REDEVELOPMENTPLAN LPlan2040:GuidingPrinciplesLPlan2040istheLincoln‐LancasterCounty2040ComprehensivePlan.ThePlanembodiesLincolnandLancasterCounty’ssharedvisionforthefuture,totheyear2040.Itoutlineswhere,howandwhenthecommunityintendstogrow,howtopreserveandenhancethethingsthatmakeLincolnspecial,andstrategiesforimplementingthevisionforhowwewilllive,work,playandgetaroundinthefuture.
TherelevantprincipleslistedbelowaretakendirectlyfromLPlan2040andwillbeusedasaguideforredevelopmentactivitiesincombinationwiththeconcernsidentifiedinprevioussectionsofthePiedmontRedevelopmentPlan.
Business&Economy Focusprimarilyonretentionandexpansionofexistingbusinesses;attractingnew
businessshouldalsobeencouraged.
Seektoefficientlyutilizeinvestmentsinexistingandfuturepublicinfrastructuretoadvanceeconomy.
Striveforpredictabilityforneighborhoodsanddevelopers.
Encouragecommercialareasandlimitedindustrialareastomakeavailableopportunitiesforindividualsand/ororganizationstoraiseandmarketlocalfood.
Encouragepreservationorrestorationofnaturalresourceswithinoradjacenttocommercialorindustrialdevelopment.
Encouragecommercialcenterstoencompassabroadrangeoflanduseswiththeintegrationofcompatiblelandusetypes.
Mixed‐UseRedevelopment Targetexistingunderdevelopedorredevelopingcommercialandindustrialareasin
ordertoremoveblightedconditionsandmoreefficientlyutilizeexistinginfrastructure.
Belocatedanddesignedinamannercompatiblewithexistingorplannedlanduses.
Encouragesubstantialconnectivityandconvenientaccesstoneighborhoodservice(schools,parks,stores)fromnearbyresidentialareas.
Helptocreateneighborhoodsthatincludehomes,stores,workplaces,schoolsandplacestorecreate.
Encourageresidentialmixed‐useforidentifiedcorridorsandredevelopingRegional,Community,Neighborhood,andMixed‐UseOfficeEntersidentifiedasnodes.
Mixed‐useredevelopmentnodesandcorridorsshouldstrivetolocate:
o Wherethereisexistingpotentialforgoodaccesstotransit,toenhancethepublictransitsystembymakingitaccessibletoresidentsandtofacilitatedevelopmentof
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neighborhoodmultimodalhubswhereresidentscandrive,bike,orwalktoatransitstop,gotowork,andthenshopfortheirdailyneedsbeforetheyreturnhome.
o Onatleastonearterialstreettohelpprovidefortrafficandutilitycapacityandaccesstotransit.
Neighborhoods&Housing Encouragepublicinvestmentinneighborhoodinfrastructureandservicessuchasparks,
pools,libraries,andneighborhoodbusinessdistricts.
Promotesustainabilityandresourceconservationbypreservingandimprovinghousinginexistingneighborhoods.
Provideflexibilitytothemarketplaceinsitingfutureresidentialdevelopmentlocations.
Striveforpredictabilityforneighborhoodsanddevelopersforresidentialdevelopmentandredevelopment.
StrategiesforRedevelopmentinExistingNeighborhoods
o Maintainandenhanceinfrastructureandservicesinexistingneighborhoods.
o Preserve,protectandpromotethecharacteranduniquefeaturesofurbanneighborhoods,includingtheirhistoricalandarchitecturalelements.
DetailedStrategiesforRedevelopmentofExistingNeighborhoods
o Encourageamixofcompatiblelandusesinneighborhoods
Similarusesonthesameblockface.
Similarhousingtypesfaceeachother.
Commercialparkinglotsshouldnotintrudeintoresidentialareaswhereresidentialusespre‐dominateablockface.
o Encouragepedestrianorientationwithparkingatrearofresidentialandneighborhoodcommercialuses.
o Redevelopmentandinfillshouldstriveforcompatibilitywiththecharacteroftheneighborhoodandadjacentuses(i.e.parkingatrear,similarsetback,heightandlanduse).
o Maintainsmallparksandopenspacewithinwalkingdistanceofallresidences.
o Encouragesharedparkingwheneverpossible–permitminorincursionsofaccessoryparkingforpublic/semi‐publicusesintoneighborhoodsifproperlyscreened.
o Maintainexistingpatternofstreetsforconnectivity.
o Maintainarterialstreetsthatarecompatiblewiththeexistingneighborhoodcharacterwithtwothroughlanesandacenterturnlanewhereapplicable.
o Utilizestreetsforcommercialandresidentialparking.
o Encouragealleyaccessandshareddrivewaystoparkingareasinordertoreduceinterruptionstopedestriantraffic,topreserveon‐streetparkingcapacity,andtoreduceautomobileconflictpoints.
o Supportthepreservationandrestorationofnaturalresources.
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Parks,Recreation,andOpenSpace
Parksandopenspaceenhancethequalityoflifeofthecommunity’sresidentsandarecentraltothecommunity’seconomicdevelopmentstrategy–thecommunity’sabilitytoattractandretainviablebusinesses,industries,andemployeesisdirectlylinkedtoqualityoflifeissues,includingindoorandoutdoorrecreationalopportunities.
Neighborhoodparksareapproximatelyfourtosixacressitesthatarecentrallylocatedwithinareasofresidentialdevelopment.Typicalactivityareasincludeplaygroundequipment,openlawnareasforinformalgamesandactivitiesorplaycourtswithasinglebasketballfoalforinformalgames,shadedseatingandwalkingpaths.
StrategiesforNeighborhoodParks
o LocateNeighborhoodParksclosetothecenterofresidentialareasandwithinwalkingdistanceofamajorityofresidents;parksitesshouldbereadilyaccessiblebypedestriansandbicyclists.
o LocateNeighborhoodParksadjacenttogreenwaylinkageswherepossible.
o Locateparksiteswhereresidentslivinginsurroundinghomes,peopleinpassingvehicles,orpedestrianscanviewactivitiesintheparktoprovideforinformalsupervision.
PiedmontAreaRedevelopmentActivities PublicImprovements
SomeoftheinfrastructureconcernsthatwereidentifiedintheblightandsubstandardstudywillbeaddressedaspartoftheredevelopmentactivitiesforthePiedmontShops.Theseincludecurbandgutter,sidewalks,landscaping,plumbingandsewageandelectrical.
PrivateImprovements
PiedmontShops
Locatedat1265CotnerBoulevard,ThePiedmontShoppingCenterwasoneofthefirstshoppingcentersinLincoln.Builtin1956,itreceivedmajorenhancementsin1977andafaceliftin1997.TheproposedPiedmontShopsprojectincludestheredevelopmentandrestorationofthecenter.Thereisapproximately51,000squarefeetofbuildingspace,whichiscurrently45percentoccupied.Therehasbeenalackofresourcesavailableforimprovementstothispropertyoverthepast17years.Thenewpropertyownerwantstomakeimprovementstothecenterandmakethisanattractableassettotheneighborhoodandthecommunity.Itistheowner'sintenttomakethePiedmontShoppingCenteranexcitinggatheringplace.
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Keyelementsoftheredevelopmentprojectinclude:
Updatethestonefaçadewiththreebuild‐outsthatcomeawayfromthebuildingandextendabovetherooflineforsignage‐thiswilladddimensiontothebuilding.Blackawningswillbeinterspersedtogiveahistoricalflavor;
Signagewillbeplacedonthenewfaçadeabovetheentrywaysofeachbusiness;
Electronicsignagereplacingthecurrentmonumentsignage;
Exhibit6:ProposedSitePlan
NORTH
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Eliminatetheparkingstallsadjacenttothebuildingsandwidentheexistingsidewalksto12feettoprovideapedestrianwalkwayaroundtheperimeterofthebuilding;
Provideaboulevardconceptintheparkinglotthatisbetween12and15feetwidewithfourseatingareas,plantersandboulevardlighting;
Beautification/improvementofstreetscapeandlandscaping;
Includeplantingareasthroughouttheentirefacilityandprovidebenches;
Parkinglotimprovementswithatotalof197parkingstalls;remove3or4existingparkingstallstoincreaselandscapingandallowforboulevardspace.Thecornerstallswillbeusedforlandscapingareas;
Painting,clean‐upandrepairsofthebuildinginterior;
Considerclosing50thStreetandmakingacul‐de‐sactoeliminateintersectionissues;
Thecenterwillconsistofexistingandproposedtenants.Withfourrestaurantsbeingproposed,considerationisbeinggivenastoindividualtrafficpatternsandthepeakbusinesshoursofeachaswellastheparkingneedsoftheothertenants.
PiedmontAutoCareTheownershavenospecificplansofredevelopmentatthistime,butareawareoftheredevelopmentplanandprocess.
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FutureLandUseExhibit7showsthefuturelandusefortheareaasproposedbyLPlan2040.TheproposedRedevelopmentAreaactivitieswillnotchangetheoveralldensityofthearea.RedevelopmentProcessPublicimprovementsandredevelopmentactivitiesmayrequireconstructioneasements;vacationofstreetandalleyright‐of‐way;temporaryandpermanentrelocationofbusinessesandresidences;demolition;disposal/saleofproperty;sitepreparation(mayincludedrivewayeasements;pavingdriveways,approachesandsidewalksoutsidepropertylines;relocationofoverheadutilitylines;andrerouting/upgradingofundergroundutilitiesasneeded).Theprocessfortheseactivitiesincludesthefollowing:
PropertyAcquisition.TheCitymayacquirethenecessaryfees,easements,propertyandcovenantsthroughvoluntarynegotiations(SeeLandAcquisitionPolicyStatement,onfileattheUrbanDevelopmentDepartmentandavailableonrequest).Ifvoluntaryagreementisnotpossible,theCitymayinstituteeminentdomainproceedings.
Relocation.Relocationmayinvolvethetemporaryorpermanentrelocationoffamilies,individuals,orbusinessestocompleteredevelopmentactivities.Relocationwillbecompletedaccordingtolocal,state,andfederalrelocationregulations(seeRelocationAssistance,onfileattheUrbanDevelopmentDepartmentandavailableonrequest).
Demolition.Demolitionwillincludeclearingsitesonpropertyproposedforpublicimprovements;necessarycapping,removalorreplacingutilities;sitepreparation;securinginsuranceandbonds;andtakingothernecessarymeasurestoprotectcitizens
Exhibit7:FutureLandUse‐LPlan2040
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andsurroundproperties.Measurestomitigateenvironmentalfindingsmayalsobenecessaryifdeterminedbysitetesting.
Disposal/Disposition.Futuresub‐areaprojectsmayincludethesaleoflandtoprivatedevelopersforredevelopmentpurposes.Developerswillbeselectedinanequitable,open,andcompetitiveproposalprocessaccordingtoCityrequirements.
RequestsforProposals.ArchitectsandengineerswillfollowtheCity’sstandardselectionprocessftpdesignpublicfacilitiesandimprovements.Primarycontractorsforpublicfacilitiesandimprovementswillalsobecompetitivelyselected.
EstimatedExpendituresThepreliminaryestimateforprivateinvestmentisapproximately$4.7million.Moredetailedcostswillbeestimatedwhendesigniscompleted.PublicimprovementswillbeconstructedusingTaxIncrementFinancing(TIF)fundsgeneratedfromprivatedevelopment.SeeAppendixAforapreliminarycostbenefitanalysis.
ConformancewithComprehensivePlanLPlan2040,theLincoln‐LancasterCountyComprehensivePlan,adoptedOctober,2011,asamended,representsthelocalgoals,objectives,andpoliciesoftheCityofLincoln.ThePiedmontRedevelopmentPlanwasdevelopedtobeconsistentwiththeLPlan2040.
FinancingTheprimaryburdenforrevitalizationoftheRedevelopmentAreamustbeontheprivatesector.TheCitymustprovidepublicservicesandpublicimprovementsandparticipatewherenecessaryintheredevelopmentprocess,buttheneedsoftheareaarebeyondtheCity’scapacitytodoalone.Financingofproposedimprovementswillrequireparticipationbyboththeprivateandpublicsectors.Whereappropriate,theCitymayparticipatebyprovidingfinancialassistancefortherehabilitationofstructures.
Sourcesoffundingmayinclude: SpecialAssessments–BusinessImprovementDistricts PrivateContributions SaleofLand(Proceedsfromthesaleoflandacquiredforredevelopment,asidentifiedin
theRedevelopmentPan,shallbereinvestedintheRedevelopmentArea) MunicipalInfrastructureRedevelopmentFund(MURF) CommunityDevelopmentBlockGrantFunds(CDBG) HomeInvestmentPartnershipAct(HOME) HUDSection108LoanProgram CommunityImprovement(TaxIncrement)Financing(AdValoremTax) CapitalImprovementsProgramBudget FederalandStateGrants InterestIncome AdvanceLandAcquisitionFund–propertyrights/easements,publicfacilitysite
acquisition ImpactFees
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ProjectactivitieswillbeundertakensubjecttothelimitandsourceoffundingauthorizedandapprovedbytheMayorandCityCouncil.
AccordingtotheCommunityDevelopmentLaw,anyadvaloremtaxlevieduponrealpropertyintheredevelopmentprojectforthebenefitofanypublicbodyshallbedivided,foraperiodnottoexceed15yearsaftertheeffectivedateofsuchprovision,bythegoverningbodyasfollows:
Thatportionoftheadvaloremtaxwhich isproducedbythe levyattheratefixedeachyearbyorforeachsuchpublicbodyupontheredevelopmentprojectvaluationshallbepaidintothefundsofeachsuchpublicbodyinthesameproportionasareallothertaxescollectedbyorforthebody;and
Thatportionoftheadvaloremtaxonrealpropertyintheredevelopmentprojectinsuchamount, ifany, shallbeallocated toand,whencollected,paid intoa specialfundoftheauthoritytobeusedsolelytopaytheprincipalof,the intereston,andany premiums due in connection with the bonds of loan, of money to, orindebtednessincurredby,whetherfunded,refunded,assumed,orotherwise,priorityforfinancingorrefinancing,inwholeorinpart,theredevelopmentproject.
When such bonds, loans, notes, advances of money, or indebtedness, includinginterestandpremiumsdue,havebeenpaid,theauthorityshallsonotifythecountyassessorandcountrytreasurerandalladvaloremtaxesupontaxablerealpropertyinsucharedevelopmentprojectshallbepaidintothefundsoftherespectivepublicbodies.
TheeffectivedatefortheCommunityImprovementFinancingforeachRedevelopmentProjectshallbeidentifiedintheprojectredevelopmentcontractorintheresolutionoftheauthorityauthorizingtheissuanceofbondspursuanttoNeb.Rev.Stat.Section18‐2124.
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APPENDIXA:COSTBENEFITANALYSIS NebraskaCommunityDevelopmentLaw(NERes.Stat#18‐2147)requiresthecompletionofacostbenefitanalysisforredevelopmentprojects.TheCity’sLawDepartmenthasinterpretedtherequirementtomeanthattheanalysismustbecompletedinconjunctionwiththeRedevelopmentPlan.Sinceprojectsarenotfullydeveloped,theanalysiswillbecursory;however,moredetailedanalyseswillbecompletedasprojectsdevelopandwillbebroughtbeforetheCityCouncilinconjunctionwithredevelopmentagreementswhenneeded.
PiedmontShoppingCenterProjectThePiedmontShoppingCenterProjectwillredeveloptheapproximatelyfour(4)acreslocatedgenerallyat1265SouthCotnerBoulevard,Lincoln,Nebraska,inthePiedmontRedevelopmentArea.TheshoppingcenterwasthefirstofitskindinLincolnandwasbuiltin1956.Thenewimprovementsincludenewentries,theuseofstuccoandstonetoenhancetheexistinglimestonefaçade.Alsoplannedarenewawnings,landscaping,stampedconcretepatios,fencing,stonepillarsandnewlightpoles.Thetotalcostofconstructionisestimatedatapproximately$4,700,000.
AsrequiredbyNebraskaCommunityDevelopmentLaw(Neb.Rev.Stat.§18‐2113),theCityhasanalyzedthecostsandbenefitsoftheproposedPiedmontShoppingCenterProjectincluding:
BaseValue $2,150,700 (2013AssessedValue)
EstimatedNewAssessedValue $6,000,000
IncrementValue $3,849,300
TIFTaxGenerated $77,780
Bond/NoteIssue $757,750
FundsAvailable $757,750
TaxRevenues:TaxIncrementFinancingAnalysisUponcompletionoftheProject,theassessedvalueofthepropertywithintheprojectareawillincreasebyanestimated$3,849,300asaresultoftheprivateinvestment.Thiswillresultinanestimatedannualincreaseofapproximately$77,780inpropertytaxcollectionsthatwillbeavailablefortheconstructionofpublicimprovementsrelatedtotheprojectduringthe15yearTIFperiod.Thepublicinvestmentofaprojected$757,750inTIFfundswillleverage$4,700,000inprivatesectorfinancing,resultinginaprivateinvestmentofmorethan$6.20foreveryCityTIFdollarspent.
PublicInfrastructureandCommunityPublicServiceNeedsImpactsItisnotanticipatedthattheProjectwillhaveanadverseimpactonexistingpublicinfrastructure.TaxIncrementFinancingtowardtheprojectwillresultinnewsidewalksalongSouthCotnerBoulevardandAldrichStreet,façadeimprovements,andothereligibleimprovements.
ItisnotanticipatedthattheProjectwillhaveanyadverseimpactonCityservices,butwillgenerateadditionalrevenueprovidingsupportforthoseservices.
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EmploymentwithintheProjectAreaTheProjectwillcreateapproximately50newFTEjobsinLincoln.TheProjectwillnothaveanadverseimpactonemployersandemployeesoffirmslocatingorexpandingwithintheboundariesoftheareaoftheredevelopmentproject.
EmploymentintheCityoutsidetheProjectAreaApproximately143,225personslivinginLincolnwereemployed,accordingtothe2009AmericanCommunitySurveyandthemedianhouseholdincomewas$48,070.TheProjectwillhaveaminimalimpactontheoverallemploymentintheCity.
OtherImpactsTheProjectshouldhaveapositiveimpactontheneighborhoodandthelocalprivatebusinesssectorbyofferingnewandenhancedsitelocationoptionsforneworexistingbusinesses.TheProjectwillalsoincreasethetaxbasewithoutanadverseeffectoneitherpublicorprivateentities.
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TABLE OF CONTENTS Introduction.........................................................................................................................1 PlanRequirements...................................................................................................................................................................2
ExistingConditions............................................................................................................4 LandUse.......................................................................................................................................................................................4
Zoning ..........................................................................................................................................................................................5
Parks&RecreationFacilitiesandTrails.........................................................................................................................5
Transportation..........................................................................................................................................................................7
PublicUtilities............................................................................................................................................................................9
HistoricSignificance.............................................................................................................................................................10
Blight&SubstandardDeterminationStudy...............................................................................................................11
IdentifiedIssues.....................................................................................................................................................................13
RedevelopmentPlan......................................................................................................14 LPlan2040:GuidingPrinciples........................................................................................................................................14
PiedmontAreaRedevelopmentActivities..................................................................................................................16
FutureLandUse.....................................................................................................................................................................19
RedevelopmentProcesses.................................................................................................................................................19
EstimatedExpenditures.....................................................................................................................................................20
ConformancewithComprehensivePlan.....................................................................................................................20
Financing...................................................................................................................................................................................20
AppendixA:CostBenefitAnalysis.............................................................................22
LISTOFEXHIBITSExhibit1:RedevelopmentAreawithinCityContext.......................................................................................................1
Exhibit2:ExistingLandUse......................................................................................................................................................4
Exhibit3:ExistingZoning...........................................................................................................................................................5
Exhibit4:Trail,PublicTransportationLines,andParkland........................................................................................6
Exhibit5: OriginalPiedmontPlat,1927............................................................................................................................10
Exhibit6: ProposedSitePlan...............................................................................................................................................17
Exhibit7: FutureLandUse–LPlan2040..........................................................................................................................19
LISTOFTABLESTable1:ExistingLandUse.........................................................................................................................................................4