The City of Saint Paul is planning for light rail transit along the Central Corridor, a spine that will connect the downtowns of Saint Paul and Minneapolis, the University of Minnesota, and the diverse neighborhoods along University Avenue. The Downtown Saint Paul Station Area Plan applies the broader Vision, Principles and Design Directions of the Central Corridor Development Strategy (CCDS). Building on this community-based and city- council adopted foundation, this Station Area Plan creates a more detailed framework for integrating decisions affecting future built form, land use, the public realm, and movement (including LRT, buses, cars, pedestrians and bicycles) within the Downtown. June 23, 2009 - Urban Strategies Inc. http://www.urbanstrategies.com/

1. DRAFT
Downtown Saint Paul Station Area Plan
JUNE 23, 2009

3. Table of Contents
1.0 Introduction 1
1.1 The Opportunity 2
1.2 The Station Area Plan 4
1.3 The Alignment 6
1.4 The Planning Context 8
1.5 Real Estate Market Considerations 10
2.0 LRT Downtown 13
2.1 Mobility 14
2.2 Land Use 18
2.3 Built Form 22
2.4 Public Realm 28
3.0 Place Specific Opportunities 33
3.1 Re-Imaging Fourth Street 34
3.2 Getting People to the Waterfront 36
3.3 Reinforcing Lowertown 38
3.4 Creating Positive Transit Environments 46
4.0 Getting There 51
4.1 Fine-tuning the Saint Paul Zoning Ordinance 52
4.2 Advancing Key Strategic Redevelopment Sites 53
4.3 Leveraging Strategic Partnerships 54

4. 4

5. Introduction
1.0 The Opportunity
The City of Saint Paul is planning for light rail transit along the Central Corridor, a spine that will connect the
downtowns of Saint Paul and Minneapolis, the University of Minnesota, and the diverse neighborhoods along
University Avenue. The Downtown Saint Paul Station Area Plan applies the broader Vision, Principles and Design
Directions of the Central Corridor Development Strategy (CCDS). Building on this community-based and city-
council adopted foundation, this Station Area Plan creates a more detailed framework for integrating decisions
affecting future built form, land use, the public realm, and movement (including LRT, buses, cars, pedestrians
and bicycles) within the Downtown.
As an introduction to this Station Area Plan, Chapter 1 begins by describing The Opportunity that LRT creates
for enhancing Saint Paul as a vibrant and interesting place to live, work and visit. It goes on to describe Why a
Station Area Plan is an important part of planning for LRT and related investments in downtown Saint Paul, and
describes the study process that led to this station area plan document.
The Alignment of the planned LRT is then described in detail, followed by a summary of the Planning Context
that has shaped successful growth and investment in downtown Saint Paul in recent years.
This introductory chapter concludes with Real Estate Market Considerations, which provide a snapshot of
current real estate market considerations and a series of recommendations for capturing the potential of LRT
to enhance the vitality and economic health of downtown Saint Paul.
DRAFT DOWNTOWN SAINT PAUL STATION AREA PLAN | JUNE 2009 | 1

6. 1.1 The Opportunity
The Opportunity
The insertion of LRT in downtown Saint Paul creates There are number of ways in which LRT has the potential 3. Acting as a catalyst for the re-facing of streets in
a signature opportunity to reinforce and enhance to build upon and strengthen these initiatives. These downtown with new or renovated buildings that
downtown Saint Paul as a contemporary, vibrant include: open up and embrace activity at the street; and
heart of the city for living, working and culture. It is an
opportunity to put downtown Saint Paul ‘on the map’ 1. Rebalancing movement opportunities in favor 4. Supporting new uses and activities that will seek
through a series of targeted city-building initiatives: of greater opportunities for pedestrians and to locate in vibrant downtown settings with strong
strengthening and distinguishing downtown’s cyclists; transit linkages to the wider Twin Cities region.
development market; promoting large and small place-
making efforts; and improving mobility options and 2. Strengthening links between the current activity
access to jobs, housing, and community services. clusters to create a stronger “Downtown” brand
comprised of a collection of enjoyable, distinct
Over the past decade there have been a number places and attractions;
of positive investments that have helped revitalize
Warehouse
downtown. The introduction of new open spaces and District
streetscaping has transformed the Rice Park area into Government
Center East
a regional gem and destination for arts and cultural Nicollet Mall West Bank
29th
Bank
attractions. The transformation of former warehousing Downtown East / Stadium Avenue
Metrodome Village Westgate
into residential and artists’ lofts as well as spaces for
Raymond
creative industry has breathed new life into Lowertown.
The addition of Wacouta Commons, a new residential
Fairview Lexington Dale Rice
neighborhood in the northeast quadrant of downtown, Snelling Capitol
East
has brought hundreds of new residents to enliven 10th
downtown day and night. Each of these important Downtown Street
developments has helped to strengthen the attraction, Saint Paul 4th &
Union
vitality and economic position of downtown. Cedar Depot
Figure 1.1 When completed, the Central Corridor LRT will be a central organizing element for new developments along its length, and help
to strengthen downtown Saint Paul’s position as both a destination and gateway within the Twin Cities.
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7. Figure 1.2 Downtown contains the highest potential building density within the city. The string of blocks on either side of the LRT line (highlighted above in green), and areas within a 5-minute walk of LRT
(highlighted in white), illustrate the potential of LRT to serve the highest concentration of uses and people within downtown.
DRAFT DOWNTOWN SAINT PAUL STATION AREA PLAN | JUNE 2009 | 3

8. 1.2 The Station Area Plan
The Study
Area
Figure 1.3 The Station Area Plan study area.
Why a Station Area Plan? 7th Street to the north, the Lafayette Bridge to the • ongoing discussions with the Metropolitan Council
east, the Mississippi River to the south, and Wabasha related to final LRT design through downtown Saint
Many community and City discussions have taken Street to the west. The Station Area Plan also updates Paul, particularly related to long-term access to
place around the issues and opportunities associated and replaces the 1994 Lowertown Small Area Plan. buildings and desired streetscape conditions
with the addition of LRT to downtown. The Downtown • continued outreach and education amongst
Station Area Plan captures these many ideas, The Downtown Station Area Plan focuses on city- downtown residents, businesses and employees
articulates how LRT should fit within the fabric of building opportunities related to the integration of with respect to the LRT design and construction
downtown, and summarizes a range of opportunities LRT within downtown. It represents the City’s ongoing process, operation, and future potential benefits
that result from this investment in order to maximize commitment to transit-supportive development by and impacts
the benefits to downtown. exploring opportunities in downtown to:
• priority-setting for public investment in city
The planned 11-mile Central Corridor LRT will extend building and infrastructure
1) enhance the public realm;
from downtown Minneapolis, across the Mississippi • the review and update of the Lowertown Small
River and through the heart of many of Saint Paul’s 2) improve options for mobility, with a strong Area Plan in light of the renewed opportunity LRT
diverse residential and business communities. From emphasis on pedestrian movement; creates for this downtown neighborhood
its first Saint Paul stop at Westgate Station, it will follow 3) identify appropriate future land development
University Avenue to the State Capitol campus, cross opportunities and built form; and,
I-94 and thread its way into Saint Paul’s compact and The Study Process
4) analyze market potential for long-term
urban downtown core, where it will terminate at the development.
historic Union Depot. The Central Corridor LRT design and development
Created with the input and endorsement of community process is being undertaken in partnership between
The Central Corridor Development Strategy, a vision members and stakeholders, and adopted as part of the Metropolitan Council, the cities of Saint Paul and
and set of strategies for how the Central Corridor should the Saint Paul Comprehensive Plan, the Downtown Minneapolis, Hennepin and Ramsey counties, and the
grow and change in response to the investment in LRT, Station Area Plan is a useful tool to guide the following University of Minnesota. Metropolitan Council’s longer-
was adopted in October 2007 as a chapter of the Saint decision-making processes: term process for planning the design, construction
Paul Comprehensive Plan. Building on the foundation and operation of LRT is illustrated in the upper portion
provided by the Development Strategy, the Downtown • policy and development review in response to of Figure 1.4.
Station Area Plan addresses two of three proposed infrastructure design and investment in LRT and
downtown station areas – 4th/Cedar and Union Depot. transit-supportive development
This amalgamated study area is generally defined by
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9. Draft Environmental Preliminary
Final Design Phased Construction
Metropolitan Council
Central Corridor LRT Impact Statement Engineering
2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014
Milestones
Hiawatha Development Corridor Station Downtown Construction Begins Operation of
Process
LRT Selected
Related
Transit Line begins as Preferred Strategy Area Plans Station Area the LRT line
Corridor LRT Full Service Alternative Completed Completed Planning begins
Central
Environmental Impact Statement Preliminary Engineering Final Design Stage Construction
2008 2009
1 Understanding 2 Exploring 3 Creating
Saint Paul Downtown Station Area
September October November December January Feb March April May June July August
Initial Downtown Steering Public Round Open House 1 Open House 2
Consultation
Committee Meeting Tables Emerging Directions Draft Downtown Station Area Plan
Stakeholder Interviews Steering Committee & Steering Committee
Plan Process
Stakeholder Workshop Meeting
Project Meetings Feedback
Meetings
Meetings with
Client
Initiation with City from
City Staff
Meeting Staff City Staff
Inventory
Information Preparation Revise and Prepare the Draft
Analysis & Submission
Collection Draft Downtown Organization of Information of the Initial Station Area Plan Revise & Prepare
Assessment of Initial Draft
Tasks
& Review Issues & & Preparation of Workshop Draft Final Downtown
of Findings Station Area
Opportunities Memo Materials Station Area Station Area Plan
Plan for Review
Plan
Preparation of Materials Preparation of Materials
Figure 1.4 Two concurrent and mutually supportive processes for planning LRT in downtown Saint Paul are featured above.
The Metropolitan Council is responsible for making The Downtown Station Area Plan builds on the overall The lower portion of Figure 1.4 illustrates where the
decisions regarding the LRT route alignment; the direction of the Central Corridor Development City of Saint Paul’s downtown station area planning
number, location and design of station platforms; Strategy. It has been undertaken in consultation with process fits into the bigger picture of planning for
future road configurations; property acquisition; and key stakeholders, agencies, land owners, businesses LRT. This document is the result of this process, and
other design and construction issues that are beyond and community members in downtown. The is designed to focus on the associated benefits and
the scope of the station area planning process. preparation of the Plan was guided by the leadership impacts that LRT will bring to downtown Saint Paul, as
of the Downtown Steering Committee and City staff. opposed to the design of the LRT alignment itself.
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10. 1.3 The Alignment
The Alignment
01: From the Capitol, the alignment will run down the center of 02: The alignment will continue along the eastern side of the
LRT inserts itself into downtown along existing streets. Cedar Street until the 10th Street Station, where it will shift to street until 5th Street, preserving a single lane along the west
It will include three stations beginning at Union Depot, the eastern side of the street. side of the street for traffic and buses heading south.
which will in the future also connect to a larger inter-
modal transit network. The LRT alignment described
in Figure 1.7 and illustrated in Figure 1.8 transforms
the character of Cedar and 4th streets into truly
balanced streets with strong emphasis on transit and
pedestrian movement.
LRT will have a much different impact and relationship
to downtown Saint Paul than the remainder of the
Central Corridor line. Functionally, the downtown
portion of this alignment will have more similarities with
the Hiawatha LRT alignment in downtown Minneapolis
than with neighboring stops on University Avenue.
03: At 5th Street the alignment will run diagonally through the 04: The alignment will run along the south side of 4th Street,
While University Avenue is generally wide enough for block bound by 5th, Cedar, 4th and Minnesota. This will be the preserving one westbound lane along the north side of the
LRT to be ‘added’ within the existing right-of-way, the site of the 4th and Ceder Station. street.
insertion of LRT into downtown Saint Paul’s narrow
right-of-way will require a more sympathetic response
to a denser, more complex existing urban fabric.
These constraints will require coordination with and
consideration of neighboring businesses, residences,
institutions, pedestrians and motorists who rely
on the same tight spaces for access, address and
circulation. Each user will need clear indications,
through some combination of traffic signals, signage,
paving materials, bollards or other sensitively-
designed features to identify permitted routes, traffic
direction, approaching trains, and safe crossing points. 05: The alignment will continue along the south side of the 06: East of Union Depot, the alignment will shift to the center
Additionally, stations and related LRT infrastructure street in front of Union Depot. The Union Depot station will abut of the street, preserving one lane in each direction up to the
will need to be streamlined to preserve limited space. the existing front lawn of the station. OMF facility.
Figure 1.7 The LRT will have a variety of configurations as at travels through the downtown.
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Figure 1.8 The LRT alignment through downtown serves the office core and large residential population, and connects to the Union Depot multi-modal hub.
DRAFT DOWNTOWN SAINT PAUL STATION AREA PLAN | JUNE 2009 | 7

12. 1.4 The Planning Context
Numerous plans, studies and initiatives have shaped Central Corridor Development into Directions and Place-Specific Opportunities
the positive transformation of downtown Saint Paul Strategy (2007) outlined in Section3. In particular, principles related
over the last 20 years. The Downtown Station Area Plan The Central Corridor Development Strategy (CCDS), to “Improving Connectivity” by improving linkages and
does not exist in isolation from these documents. The a vision and set of strategies for how the Central mobility routes through downtown, and “Providing a
Downtown Station Area Plan provides a lens through Corridor should grow and change in response to the balanced network for movement”, which refers to
which to re-examine past ideas and recommendations investment in LRT, was adopted in October 2007 as a the design of streets that are shared equally amongst
in light of the planned insertion of LRT, and identify chapter of the Comprehensive Plan for the City of Saint vehicles, pedestrians, buses, bicycles and trains, are
the many new opportunities this investment affords in Paul. The Downtown Station Area Plan is designed explored in more detail in the Downtown Station Area
achieving the long-term vision for downtown Saint Paul to be fully consistent with and complementary to the Plan.
as a revitalized, vibrant and complete community. higher-level objectives of the CCDS, specifically the
downtown-specific opportunities described in Section Saint Paul Downtown Development
As a result, this document carries many of the ideas 3.4. Where relevant, the Downtown Station Area Plan Strategy (2005)
from existing plans forward, with a revised emphasis revises and expands upon these recommendations The Downtown Development Strategy builds on the
on the place-making and reinvestment potential of in light of new information and/or recent planning or Development Framework directives to provide focussed
LRT. The following summarizes specifically where development activity undertaken since adoption of the direction for the downtown. Core principles include
the Downtown Station Area Plan is aligned with and Central Corridor Development Strategy, including the improving connectivity between neighborhoods,
informed by its predecessor documents. final location of LRT stations and nature of platform downtown and the river; and designing a more
amenities, a confirmed LRT alignment and relationship balanced network of streets. Key directions described
Summarized documents include the Historic to existing transportation patterns, the location of the in the Strategy with particular relevance to the station
Lowertown Small Area Plan, the Lowertown Operations and Maintenance Facility, and additional area planning process include:
Redevelopment Corporation’s Urban Village Vision, detail on an expanded bicycle network.
• enhancing Cedar and Fourth Streets as balanced
the Saint Paul on the Mississippi Development streets that accommodate LRT, pedestrians, and
Framework, the Downtown Development Strategy, the Saint Paul on the Mississippi other forms of mobility;
Report of Diamond Products Task Force, and most Development Framework (1997)
recently, the Central Corridor Development Strategy. The Development Framework outlines ten principles • improving the experience of moving through
for guiding future development in downtown Saint downtown at grade level;
Paul. The Downtown Station Area Plan incorporates
the general intent and meaning of these principles
8