Seward Redesign: Riverside Task Force Recommendations

PREFACE

While the Riverside Market Task Force (RMTF) was originally set up to develop recommendations for the redevelopment of the old Riverside Market Site, we soon found ourselves in the position of trying to influence a process that had begun on a parallel track - that of Seward Redesign partnering with Lyndale West Partners, (development team) to secure and develop the site with the Seward Community Cooperative Grocery (the Co-op) as the anchor and major influence on the development.

We developed a set of principles or vision for development of the site (see Attachment A) but even as we were developing those we realized that many of those principles would have to be compromised if we were to accommodate the needs/desires of the Co-op. The most glaring of these is the need to have such a large surface parking lot which seriously reduces the opportunities for green space and some forms of public art, things the community identified as strong values.

Another, as yet, unresolved issue, is the development team's suggestion that part of the development be built to 5 stories to ensure enough housing to make the whole development work. There is significant concern and some opposition to this in the community. This issue is still being discussed and these recommendations should not be taken to imply a recommendation that the design include 5 stories.

Since the predominant neighborhood need that we heard was for a grocery store on the site, and given the limitations of the site, we indicated at our June 29th meeting that we support the further exploration of the development of the Riverside Market Site for the relocation of the Co-op to the site. We understand that will likely include something approximating:

Ground floor footprint of 20,000 s.f., primarily for grocery store use;
Second floor commercial space of approximately 3,700 ft2 Co-op kitchen, offices and meeting space;
58 parking stalls at grade;
Rezoning of the property at 2012-29th Avenue South to C2 and incorporation into the development;
Vacation of the east half of the east-west portion of the alley between the principal site and the property immediately to the south, incorporation of the vacated portion into the development site and the creation of an "L" shaped alley.

We continue to support that direction with the clear understanding that it is contingent upon the Co-op being a tenant/owner on the site and that other design considerations are included.

The task force has solicited public input in a number of ways. In addition to the task force meetings, which have been open to everyone, we held a community imagining session on June 24th that was attended by nearly 50 people from all areas of Seward, and we held open houses and conversation with residents of both Seward Towers East and West, as well as with residents of the HUD building at Franklin and 28th Ave. In addition input was solicited via email and an open house for the most immediate neighbors to the south on 29th, 28th and 27th Aves through the 28th Avenue block club.

What has emerged is a willingness by many to accept a number of tradeoffs in trying to accommodate the Co-op with the understanding that everything possible should be done to offset those tradeoffs. As we write these recommendations there is still work being done between task force members and the development team to explore additional options, based on community input, for configuring the building on the site. These recommendations may have some relevance if the Co-op decides not to move to the site, but we are only recommending them solely contingent upon the Co-op's relocation.

The first set of recommendations in this document are site specific and are intended to provide direction from the community to SNG, the development team, city officials, and the Co-op as they continue to develop plans for the site. This document should not be interpreted as approval for any design/development - that would be premature. Our hope is that the final design will be one that satisfies the Co-op's needs and the neighborhood's vision, as is feasible, and we look forward to reviewing the final design before applications are made to the city.

In the process of discussing the Riverside Market site, concerns arose related to the relocation of the Co-op and the effect of that action on development at the west end of Franklin, as well as general concerns about the overall lack of planning for Franklin, including looking at traffic patterns. The second set of recommendations in this document address those discussions.

SITE SPECIFIC RECOMMENDATIONS

1) While the actual structure of the building on the site is still to be determined, there are two major areas that need to be addressed, regardless of how many floors are built and where.

We recommend SNG play an active role with the development team and the city in ensuring that:
a. The building is LEED (Leadership in Energy and Environmental Design) certified. Specifically the design should focus on earning maximum credits in the LEED categories of stormwater design (quantity control), energy and atmosphere, and light pollution reduction.
b. The building is architecturally interesting and makes a signature statement of Seward Neighborhood. Things to consider are:
i. High quality construction
ii. Building elevations that provide architectural interest (perhaps by variety in materials, colors, structures, etc.)
iii. Partnering with Northern Clay Center to help create clay, ceramic or other masonry for the faade.
iv. Ensuring there are windows along Franklin and 29th - as many as possible

2) The development of the entire site needs special attention given the limitations imposed by the need of the Co-op and the size of the site.

We recommend that the SNG play an active role with the development team and the city in ensuring that:
a. Money for some form(s) of public art is included in the architectural plan to maximize the opportunities for including public art
b. Green space and greenery are maximized within the constraints of the design. Consideration should be given to things like trellised ivy-covered walls, trees in the parking lot, and re-treeing of the Franklin Ave boulevard
c. Buffering and transitions to the surrounding neighborhood should be creative and attractive. Strong consideration should be given to:
i. Non-permeable, opaque buffering on the south side of the parking lot to a height of 5 feet to minimize headlight penetration of the neighborhood but allow visual sight for alley safety.
ii. Other buffering should include greenery, signature fencing and public art where possible.
iii. Sidewalk along Franklin Avenue should be wide enough to accommodate walkers, bikers, strollers, and wheelchairs.

3) If the Co-op relocates to this site, there is a wide interest of people living in the high-density housing in east Seward in being able to shop at the Co-op. There are also a number of concerns people have about shopping there.

We recommend SNG actively engage the Co-op in:
a. Presenting information to the residents of these three buildings on what the Co-op can provide them related to convenience (e.g. in-store assistance, delivery assistance), price (e.g. senior discounts, food stamps, WIC coupons), and selection (type of foods available and ability to purchase in small amount)
b. Building on the surveying done by RMTF and carrying out focus groups on more extensive exploration of the buying needs of residents

4) The Co-op and the development team have not yet reached a final decision concerning the Co-op's move to the Riverside Market site, and there is a high desire of the neighborhood to have a grocery store at that location.
We recommend that in the event the Co-op decides against moving to the site, SNG take an active role in getting a commitment from Seward Redesign and Lyndale West Partners to fully research and explore other options for locating a full-service grocery store at this location.

ADDITIONAL RECOMMENDATIONS

5) Many concerns have been raised about the impact of the Co-op leaving west Seward. Certainly the loss of a grocery store there is of concern. Additionally, there are a number of concerns about the impact on the safety of the neighborhood as the Co-op has had a very positive impact on public safety.

We recommend SNG play an active role in ensuring that the use of the current Co-op site is addressed early in the development of the new Co-op location, that it include neighborhood involvement, and that at least the following principles be applied:
a. Site should not sit vacant for any period of time
b. Site should have retail with similar day/evening hours and activity to its current use
c. Site should add to the vitality of Franklin Avenue
d. Consideration should be given to dividing the building for a variety of retail uses

6) From the beginning, the task force has been concerned that no recent planning has been done for future development of the whole Franklin Ave corridor in Seward.

We recommend SNG immediately begin identifying and soliciting the partners that will be needed to lead the development of a Small Area Plan for Franklin Ave from the Franklin Ave Station to the river. Conversations should begin with Council Member Cam Gordon, the Mayor's office, the Minneapolis Planning Department, the Urban Design Center and others to identify partners with the resources and know how to make this happen. This includes identifying who will lead the planning. Seward Redesign should be engaged in the process but should not lead the process as they are actively developing parts of the corridor. The Small Area Plan should have an emphasis on community involvement and use the RMTF vision/principles as a starting point along with work that has been done to define the kind of development desired around the Franklin Ave Station.

7) The task force identified a number of existing problems with traffic in east Seward along with a number of potential new problems that site development might bring. There are more detailed notes in the minutes of the task force's June 15, 2006 meeting (excerpted in Attachment B). Additional concerns were raised through the various community input forums. Generally these have to do with pedestrian (especially seniors and people with disabilities) and bike safety, traffic flow through the neighborhood, parking, and the increase of traffic on Franklin Ave, along with difficult and confusing access to I-94. These conversations were not exhaustive and point to the need for more work.

We recommend SNG actively pursue getting a traffic study and design process done as soon as possible for Franklin Ave in Seward by contacting Council Member Cam Gordon, the Mayor's office and the Department of Traffic and Parking Services to solicit City support and involvement.

ATTACHMENT A
VISION AND VALUES FOR DEVELOPMENT OF
FORMER RIVERSIDE MARKET SITE

Adopted by SNG Riverside Market Task Force
June 15, 2006

Seward neighborhood residents, both renters and homeowners, as well as Franklin Avenue businesses view this site as essential to the ongoing development and improvement of the Franklin Avenue corridor. Therefore any development plans for this site, both its use and design, should reflect the larger vision for the Franklin Avenue corridor and provide impetus to the continued improvement of the Franklin Avenue corridor from the light rail station site extending east to the Mississippi River.

Seward neighborhood residents have identified the following guidelines to frame the vision and values for development of the former Riverside Market site.

USE OF SITE
- Consistent with the rest of Franklin Ave in Seward Development plans will provide a vision of this site that is consistent with the remainder of the Franklin Avenue corridor and which complements the existing housing along Franklin Avenue.
- Address community needs
  This development should address current community and neighborhood needs. These could include, but not be limited to providing a source of affordable grocery products, small business opportunities, living wage jobs and training opportunities, youth-related services and opportunities and affordable family housing.
- Preference for locally owned businesses
  Priority should be given to locally owned businesses, businesses providing needed services and products to the surrounding neighborhoods and businesses that will strengthen the character and economic vitality of Franklin Avenue. Large "Big box" or national "chain" retail stores and fast food shops should be avoided.
- Mixed use consistent with surroundings
  Mixed use development at this site will reflect both the residential and commercial character of the Franklin Avenue corridor. This mixed use development should reflect the scale of surrounding commercial and residential structures.
- Arts related
  Arts-related uses of this site should be a high priority, both in terms of possible tenants as well as public art projects. This will continue to build on the existing art uses along the Franklin Avenue corridor, including the Northern Clay Center, the Playwrights Center and the Joan of Art Gallery site at 30th and Franklin.
STRUCTURE/DESIGN
- Inclusion of green space
  Any future development of this site should provide as much green space as possible, reflecting the nearby Mississippi River gorge, Triangle Park at 26thth and Franklin as well as Matthews Park which is several blocks to the south of this site.
- Green construction
  Construction of this site should incorporate "green" construction technologies wherever possible and feasible. For example, this could include green roots, rainwater and storm water management, energy conservation, and green building technologies.
- Blend in to neighborhood
  Construction of this site should provide an attractive transition to both the housing on the south side of Franklin as well as a gateway into the business district to the west of this site along Franklin Avenue.
- Identity
  Through aesthetic and visual design components this site should provide a clear identity and sense of place for both residents and visitors.
PARKING/TRAFFIC/SAFETY
- Ensure public safety
  Public safety must be a high priority. This includes addressing current safety issues at the 29th Ave and Franklin Ave intersection (including increased traffic that may come with redevelopment) to insure the safety of pedestrians, bicyclists and transit riders. Left hand turn lanes are essential as is planning for the anticipated increase in both customer and tenant traffic. Traffic calming techniques should guide all planning related to public safety on and around this site.
- Encourage multi-modal access
  Priority should be given to creating adequate public space that readily accommodates and encourages pedestrians, bicycle riders and transit users, as well as strong connections between other neighborhood destinations as well as the Greenway.
- Address parking needs
  Off street parking which is well-integrated into the overall site is a priority.
- Ease traffic flow / noise
  Precautions should be taken to minimize business encroachment into the neighborhood immediately to the south of the site, across the alley. This would include minimizing customer traffic, delivery vehicles, noise, light and late night hours.
ATTACHMENT B

Excerpt from June 15 RMTF meeting minutes

Traffic:
The Task Force moved into small groups to discuss traffic around the site. Each was given a map of the area. The groups were asked to identify existing problems, identify potential problems with the site and possible solutions. John Wertjes, from the Department of Traffic and Parking Services, was on hand to answer questions and listen to groupÕs feedback. Several ideas/problems were identified:
- How much increased traffic do we want to commit to?
- Strong suggestion to deal with the area as a whole, not just 28th and 29th. Look at Franklin Avenue as a whole and how traffic will impact other areas.
- The Franklin/Riverside intersection is bad. It does not allow for safe pedestrian crossing. There is no left turn onto Riverside from Franklin so it makes highway access more difficult.
- Making 27th Ave. two-way is already controversial due to the narrowness of the street, existing parking on the street, several entry points, and pedestrian safety on the north end.
- Make 25th accessible to the Highway and increase pedestrian traffic to Triangle Park from the Seward Towers by eliminating the 26th Ave access to 94.
- Right turn arrow from Franklin on to Riverside when traveling west is almost constant and makes for unsafe pedestrian crossing.
- Since people cannot currently turn left of Franklin onto 29th Ave people accessing the new condos will have to circle through the neighborhood - may want to look at allowing a left turn there.
- Look at timing of lights
- Need better pedestrian crossing on 9th and Riverside.
It was also noted that no freeway access signs are around, so it makes for confused and difficult access from the neighborhood. Also, increased traffic on 28th and 29th Ave. will be a hardship on the neighbors. Speed bumps were suggested as a possible solution.



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