Casper, Wyoming Strategic Downtown Revitalization Plan

city of Casper DOWNTOWN STRATEGIC PLAN

City of Casper, Wyoming October 2012

Acknowledgements We salute those who support this strategic plan for Downtown Casper.

Downtown Casper Strategic Plan Committee

We would like to thank the Casper City Council for its leadership. Financial support for the Strategic Plan effort came from the City of Casper, Amoco Reuse Agreement Joint Powers Board, and the Downtown Development Authority (DDA) Board of Directors.

Laura Angelo, Amoco Reuse Agreement Joint Powers Board

Mark Young, Fire Chief

Peggy Brooker, DDA Chair

Andrew Beamer, City Engineer

Renee Penton-Jones, DDA Executive Director

Gary Clough, Public Services Director

Kate Sarosy, City Council Paul Meyer, City Council Charles Walsh, downtown business/property owner Lisa Burridge, downtown business/property owner Louis Taubert, downtown business/property owner

Technical Advisory Committee Chris Walsh, Police Chief

Craig Collins, City Planner Josh Deifel, MPO Manager Angela Emery, Executive Director Platte River Parkway Trust Lowell Fleenor, District Engineer, WYDOT Bill McDowell, County Commissioner

John Patterson, City Manager

Liz Becher, Community Development Director

Liz Becher, Community Development Director

Kale Prewitt, Urban Renewal Manager, Old Yellowstone District

Downtown Businesses Steering Committee

Consultant

Randy Pryde, downtown business/property owner

Crandall Arambula PC

Ray Drzymala, architect and downtown business owner

Don Arambula, Principal

Tassma Powers, attorney and downtown business owner

Jessie Maran, Associate

Mike Huston, bank president and downtown business owner representative Dawn Stevenson, downtown business/property owner Louis Taubert, downtown business/property owner Charles Walsh, downtown business/property owner

George Crandall, Principal Jason Graf, Associate Principal

Brenda Payne, Urban Designer

Table of Contents THE Guiding principles Plan Purpose, Process, and Goals...................................2

THE VISION Overview............................................................................6 Retail Core.........................................................................8 Retail Core Plus Housing District ­– Alternative 1........10 Retail Core Plus Retail Anchor – Alternative 2.............12 Circulation Projects.........................................................14

THE ROAD MAP Implementation...............................................................18 Priority Projects.............................................................. 20 Other Projects.................................................................26 Option Projects.............................................................. 30 Schedule......................................................................... 34

THE Guiding Principles

PLAN PURPOSE, PROCESS, AND GOALS Plan Purpose The purposes of this plan are to develop a publicly supported vision that identifies the type and location of essential downtown amenities, features, facilities and businesses and to create a road map that establishes the order of development that will foster immediate and sustained downtown growth and prosperity.

Project Process and Schedule

Plan Process An iterative design and planning process was undertaken over an eight-month period guided by regular and meaningful public involvement. The resulting plan reflects the community’s vision for the future growth of downtown Casper. The process for engaging the public and stakeholders was based on the following:  A transparent and inclusive process

Contract Meetings

 Citizen and elected official input

Additional Meetings

 Extensive public review and acceptance

Steering Committee, Stakeholder and Public Meetings The steering committee, comprised of local public officials, citizens, and business people, reviewed all plan materials and provided input and direction for plan development and implementation. In addition, the consultant conducted over thirty-five key stakeholder meetings, a kick-off workshop, open house and multiple council sessions.

Meetings Format Each meeting, workshop, and session included an interactive PowerPoint presentation that consisted of two parts:

 Presentation–Identify the project purpose, process and schedule, summarize previous meetings, and review concepts  Workshop–Identify questions and comments, discuss questions and ideas, fill out response sheets, review next steps

G

E

R

project Goals

25

R

The following goals were developed during the initial meetings with the public, steering committee, public officials and stakeholder groups and served as the touchstone for the development and evaluation of the plan.

Riv

Project Planning Area

E

er

RO

U

IV

ws

1 Elm St

o

ial

Mi

in oll

Av

 Build Local Support for the Plan 1st St

 Encourage a Mix of Downtown Housing

e ton

e

d

 Determine ‘Best Sites’ for the Conference Center, Library and Civic Auditorium 2nd St

2nd St

y Hw

Jefferson St

Lincoln St

Grant St

Park St

Kimball St

Beech St

Durbin St

 Create Memorable Public Gathering Spaces  Ensure Adequate Parking

Library

David St

str

Ash St

M ile /4 Oak St

Spruce St

Walnut St

Center St

5

= Radius

th or N

ll Ye

Poplar St

 Provide Safe and Continuous Pedestrian and Bicycle Connections

1st St

u Ind

C

Federal Bldg

Wolcott St

David St

Courts

Hall

A St

Nic

ho

lk Wa BeSt ut City County

i

n

M

ls S t

Pla

tte

C St

Market St

 Strengthen Downtown Retail

s Ca

r pe

Ra

 Develop Guidelines and Standards

l rai il T Museum

St  3rd Improve Downtown Auto Access and Circulation 4th St

Av st we

e 5th St

6th St

r sD

7th St

Natrona County High School

City Park 8th St

9th St 0’

Project Planning Area

200’

400’

800’

Casper Downtown Strategic Plan

Community Meeting #1 Casper, Wyoming February 22, 2012

CASPER, WY February 15, 2012

0

100' 200'

400' Scale: 1" = 200'

Crandall Arambula www.ca-city.com

THE VISION

Overview The Casper Downtown Strategic Plan provides a vision and an investment strategy that establish downtown as a regional destination and the focus of local redevelopment. The plan strengthens the existing retail concentration along and adjacent to 2nd Street, sets the stage for significant redevelopment of the Old Yellowstone District, and provides a framework for pedestrian- and bicycle-friendly street improvements that stitch together downtown destinations and connect with the North Platte River.

Options for Consideration

The Vision

 The library will relocate in all options and when relocation occurs, the existing library site should be preserved for a retail anchor building and parking

The vision includes the revitalization of the retail core concentrated along 2nd Street and anchoring of the retail concentration by a new conference center, hotel, and plaza. To the west and the east of the retail core, development options for areas in the Old Yellowstone District and along the east end of 2nd Street are offered in order to:

At the time of the completion of this plan, the nature of the Natrona County Public Library bond measure is uncertain. The plan acknowledges:  The limitations of the existing library building and site and supports the expansion and update of library facilities

 The importance of a new centrallylocated library in the downtown to best serve residents and support the health of downtown

Old Yellowstone District Options  A Riverfront Library and West End Retail Anchor Alternative includes a retail anchor on the west end of 2nd Street at David Street and a new library located on 5.4 acres adjacent to the North Platte riverfront  A New Housing District, Riverfront Promenade and West End Retail Anchor Alternative includes a retail anchor at 1st Street and David Street and a concentration of housing oriented toward a linear open space that connects to the North Platte River East Second Street Area Options  A concentration of high density housing on the full city block at the corner of Beech Street and 2nd street

 Supplement the retail offering on 2nd Street through strategically located retail anchors

 Relocating the library to the full city block at the corner of Beech Street and 2nd Street

 Introduce a significant number of housing units close to the retail core

T h e fo ll o w i ng p ag e s p rov i d e d e t a il e d descriptions of the vision for the Retail Core and alternative options.

 Provide an open space linkage between the 2nd Street retail and the North Platte River that serves as an amenity for potential market-rate housing

The strategic plan of fers options for consideration within two areas adjacent to the retail core.

The diagram on the right identifies the location for retail revitalization within the Retail Core and the following two option areas for consideration:

Old Yellowstone District Options Area

Conference Center Parking

Hotel

Civic Aud.

PLAZA

Retail Parking

Parking

Retail Core

Y

AR

IM

PR IL

TA

RE

East 2nd Street Options Area

Retail Core and Option Areas (View Looking West)

Retail Core

r The fundamental elements of the vision are: o

N

 Retail Critical Mass–At build out, 260,000 square feet of ground-floor retail along 2nd Street and adjacent streets will create a regional destination for shopping, dining and entertainment.  Retail Anchor & Parking–The current library site will be redeveloped into a 30,000square-foot retail space for a single user or a cluster of similar uses that includes a 450space three-level parking structure.  Retail Parking Structure–The existing parking structure and retail storefronts will be replaced with 470 parking spaces on three levels with convenient access to active street-level retail storefronts from David Street and Center Street. 182 spaces will be reserved to replace the existing office building parking.

Ash St

Elm St

e

2nd St

a P

l

PRIMARY RETAIL

t

h

PLAZA

e Av ial

P

Museum

r

st du

In

Kimball St

Beech St

Durbin St

P

t

t

1st St

wy

eH

n sto

w

lo Yel

Retail

P

Conference Center, st Ave e Hotel, & Parkingidw

Retail Anchor & Parking

M

l

rai il T

Ra

r

sD

llin

Co

Retail Core Diagram

 Conference Center and Hotel–A 44,000square-foot facility and 210-room hotel adjacent to 2nd Street will provide a built-in stream of retail customers

 Public Plaza–Strategically located at the Downtown Casper Retail Core west-end terminus of 2nd Street, the public plaza will be scaled to provide a focus for civic activities and will be surrounded by active ground-floor retail, entertainment, and restaurant uses.

Center St

David St

r i v e r

Retail Parking Structure

Wolcott St

A St

The vision for downtown is a vibrant concentration of edge-to-edge streetoriented retail along 2nd Street between David and Durbin Streets. The singular focus of the strategic plan is to identify the fundamental elements and ‘road map’ that will change the perception of downtown and create an engine for economic development and investment that is unique to Casper.

Investment Summary* New & Renovated Retail

$20 Mill.

Conference Center Hotel

$30 Mill.

Total (New Private Investment) $50 Mill.

Crandall

arambula

Revitalizing America’s Cities

* Numbers are conceptual approximations

Conference Center, Hotel, & Parking

Conference Center

Retail Parking Structure

Hotel

PLAZA

Parking Parking

Primary Retail

Retail Anchor & Parking

Retail Core (View Looking West)

Retail Core Plus Housing District – Alternative 1

 North Platte Promenade–A two-acre, linear, landscaped open space between David Street and the North Platte River provides an extension of the 2nd Street retail corridor, links the retail core to the riverfront, and provides an amenity for housing.  Promenade Housing District–A redevelopment area for approximately 300 apartments, condominiums, and townhomes is located within walking distance of the North Platte River and 2nd Street shopping, dining, and entertainment destinations.

Ash St

Elm St

A

l P

h

e Av ial

ne

sto

low Yel

Kimball St

Beech St

Wolcott St

Center St

Durbin St

P

RETAIL

HOTEL

r

ust

Ind

2nd St

PLAZA y Hw

CONFERENCE CENTER

Promenade Housing District

P

e Av

st

e idw

Retail Core

M

l

rai il T

Ra

r

sD

llin

Co

Retail Core Plus Housing District–Alternative 1

Investment Summary* New & Renovated Retail

$20 Mill.

Conference Center Hotel

$30 Mill.

 New Library–Located at the east end & Retail Anchor $100 Mill.

Downtown Casper Option withHousing Promenade of 2nd Street, this site provides the area Total (New Private Investment) $150 Mill. necessary to support the new library and, when combined with the Nicolaysian * Numbers are conceptual approximations Museum, creates a ‘cultural gateway’ into the downtown.

10

P PRIMARY

Civic Aud.

erf

t

New Library 1st St

Riv

r

Retail Anchor

Poplar St

 Retail Anchor–A 60,000-square-foot fullservice grocery store, or similar use, with 140 on-site parking spaces is convenientlyN o located at the highly visible intersection of David Street and 1st Street and includes an additional 25,000 square feet of streetoriented retail adjacent to the promenade and public plaza.

David St

The fundamental elements of Alternative 1 are:

r i v e r

North Platte Promenade

a ron t t Pa t e rk & Tra il

A St

A downtown retail anchor, riverfrontconnecting promenade, and a high-density downtown housing district strengthen the retail core and create a 24-hour active downtown living environment.

Crandall arambula

Revitalizing America’s Cities

Riverfront Park & Trail

North Platte Promenade

Promenade Housing District

Retail Anchor

Civic Aud. Conference Center

Hotel

PLAZA

Retail Parking

Parking Parking

Y

AR

IM

PR IL

TA

RE

Retail Core

Library Retail Anchor & Parking

Retail Core Plus Housing District–Alternative 1 (View Looking West)

11

Retail Core PLus Retail Anchor – Alternative 2

r

 Housing–The city block located between Beech Street, Kimble Street, 1st Street and 2nd Street, is redeveloped with 100 units of multistory high-density housing and active ground-floor uses.

Ash St

Elm St

Retail Anchor

a

t

Kimball St

Beech St

Durbin St

P

l

A

Civic Aud.

P

t

Center St

David St

r i v e r e

t

 West End Retail Anchor–A 20,000-squarefoot street-oriented retail space is located o opposite the plaza at the northwest corner N of David Street and Old Yellowstone Highway.

Housing

1st St

Library

The fundamental elements of Alternative 2 are:

Wolcott St

A St

Strengthening the retail core along 2nd Street is accomplished by establishing a terminating retail anchor at the west end and adding 100 new housing units at the east end.

h

ne

sto

low Yel

2nd St RETAIL

P

ANCHOR

HOTEL

r

ust

Ind

RETAIL PLAZA

e Av ial

PRIMARY

y Hw

CONFERENCE CENTER

P

e Av

st

e idw

Retail Core

M

l

rai il T

Ra

 New Library–The library is relocated on the North Platte River site in the Old Yellowstone District.

r

sD

llin

Co

Retail Core Plus Retail Anchor–Alternative 2 Diagram

Investment Summary* New & Renovated Retail

$20 Mill.

Conference Center Hotel

$30 Mill.

Housing & Retail Anchor Downtown Casper Option without Promenade

$13 Mill.

Total (New Private Investment) $63 Mill. * Numbers are conceptual approximations

12

Crandall arambula Revitalizing America’s Cities

Library

Retail Anchor

Civic Aud. Conference Center

Hotel

PLAZA

Retail Parking

Parking Parking

Y

AR

IM

PR IL

TA

RE

Retail Core

Housing Retail Anchor & Parking

Retail Core Plus Retail Anchor–Alternative 2 (View Looking West)

13

Circulation Projects The success of the vision will depend, in part, on circulation improvements that establish a continuous network of pedestrian and bicycle facilities connecting outlying uses to key downtown destinations. Additionally, conversion of Durbin Street and Wolcott Street to two-way is encouraged to reduce out-of-direction auto travel and improve access to, and visibility of, downtown businesses.

The circulation projects include:  Downtown Pedestrian and Bike Loop–This continuous loop builds upon the existing rail trail and planned riverfront trail infrastructure to encircle downtown and consists of a combination of recreation pathways and protected bikeways within existing street rights-of-way.  David Street Protected Bikeway– Constructed as an add-on to supplement the recent streetscape improvements along David Street, the bi-directional protected bikeway along the west side of the street links the loop with the conference center, plaza, and downtown government employment destinations.  2nd Street Improvements–To establish an active retail environment along 2nd Street that includes outdoor seating and unobstructed pedestrian movement requires straightening the serpentine roadway alignment to provide 15’ wide sidewalks on

14

Protected Bikeway

Riverfront Trail

Casper Rail Trail

Two-Way Streets

both sides of the street, converting angled parking to parallel parking, and adding striped bike lanes to connect the David Street protected bikeway with the Beech Street section of the loop.

 Two-Way Wolcott and Durbin Streets– Two-way traffic is proposed from Midwest Avenue to B Street; wherever possible curbside parking should be maintained.

Two-Way Streets

ute Walk

Ash St

Elm St

1st St David Street Protected Bikeway

P 2nd St

a P

l

PRIMARY RETAIL

N

o

r

t

h

PLAZA

ve al A

wy

eH

n sto

2nd Street Improvements

w

lo Yel

Poplar St

P

ri

ust

Ind

Kimball St

Beech St

Durbin St

David St

M

1/4

Wolcott St

A St Center St

Ra

us

ile

di

F

Min ive

t

t

e

r i v e r

Downtown Pedestrian & Bike Loop

es

dw

Mi

P

ve tA

Retail Core

ll rraai i ililTT RRaa

C

r

sD

in oll

Circulation Projects Diagram

15

THE ROAD MAP

Implementation Successful plan implementation will require a coordinated public and private effort to establish immediate development momentum, initiate priority and other projects, and ensure sustained investment over time.

Priority Projects The following priority projects will provide the catalyst needed to stimulate private investment:  Conference Center/Hotel  Public Plaza  Retail Core Strategy

Other Projects The following projec ts will provide the infrastructure and policy updates necessary to encourage sustained investment that is coordinated and consistent with the plan:  Circulation Projects  Downtown Wayfinding and Public Restroom Site Study  Regulatory Updates

18

Option Projects Based on the outcome of the November 2012 library bond vote, the following option projects will provide alternatives for strengthening the retail core:  North Platte Promenade, Housing District, and Retail Anchor  West End Retail Anchor The following pages identify sequencing and responsibilities for implementing the priority, other, and option projects.

Public Plaza Conference Center, Hotel, & Parking

Conference Center

Hotel

Retail Parking

Parking Parking Parking

Y

AR

IM

PR

IL

TA

RE

Retail Core

Retail Anchor & Parking

Priority Projects (View Looking West)

19

priority Projects Conference Center & Hotel Implementation of the conference center and hotel will be a game-changer for downtown Casper. The design of the site, the building orientation, and servicing and parking access will be determining factors in the success or failure of this project. To ensure that the conference center and hotel reinforce the strategic plan, a site development framework (shown on opposite page) should be included in the conference center and hotel developer request for proposal.

The actions necessary for implemention of the conference center and hotel are indicated in the table to the right.

20

NE

TO

S OW

ELL

P 230’

DY

OL

AY HW

HIG

L AY HW

120’

P

160’

230’

L

ASH STREET

160’

Plaza Envelope Conference 140’ Center Building Envelope

L

185’ FIREHOUSE

DAVID STREET

Conference Center FIREHOUSE Building Envelope

P

DAVID STREET

230’

Hotel Building Envelope

Plaza velope 140’

FIREHOUSE

230’

OL

DAVID STREET

LL

E DY

Hotel Building Envelope

HIG

NE

TO

S OW

Plaza Envelope 140’

Conference Center P Parking

L

LEGEND Active Edge Active Edge/ Build-To-Sidewalk

185’

P

nce

re nfe

Service/Back-of-House

ion

ans

xp

E ter

L

n

Ce

o

eC tur

UE LEGEND EN AV

Fu

Conference Center Parking

ce

ren nfe

r nte

M

Active Edge Active Edge/ Build-To-Sidewalk

Ce

Active Edge Active Edge/ Build-To-Sidewalk

o

eC tur

E NU VE Service/Back-of-House TA

Fu

Hotel Parking Entry

P

Conference Center Drop-Off Entry

Service/Back-of-House

n

nsio

pa

Ex

P

ST

E IDW

LEGEND

e

Lobby/Primary Entrance

L

Lobby/Primary Entrance

P

Hotel Parking Entry

P

Conference Center Drop-Off Entry

ES

W MID

L

Lobby/Primary Entrance

Site Development P Hotel Parking Entry Framework P

Conference Center & Hotel (View Looking West)

Conference Center Drop-Off Entry

21

Public Plaza The public plaza will create a nexus for downtown events and daily gathering and will be a magnet for investment.

The actions necessary for implementation of the public plaza are indicated in the table to the right.

22

Public Plaza (View Looking South from the Intersection of David Street and Old Yellowstone Hwy)

23

Retail Core Creating a successful retail environment requires a strategy for establishing edge-toedge retail and locating anchor tenants at each end of 2nd Street, as identified in this plan. To ensure that the vision is realized, new or updated retail-supportive regulatory standards, design guidelines, and design review processes must be prepared. Actively recruiting retail tenants will require a basic inventory of existing downtown retail space and potential locations for new retail space.

This inventor y database should be made available to potential retailers and retail recruiters. Furthermore, ongoing maintenance and investment in retail storefronts and buildings should be encouraged.

The actions needed to implement the retail core are indicated in the table to the right.

24

Retail Anchor Site Retail Parking Edge to Edge Retail

Retail Anchor Site

Retail Core (View Looking West)

25

Other Projects Circulation projects Specific design for the pedes trian and bicycle improvements and the two-way street conversions will be required.

The actions necessary for implementation of the circulation projects are indicated in the table to the right.

26

Existing David Street

Existing 2nd Street

Proposed David Street Improvements

Proposed 2nd Street Improvements

27

Old Yellowstone district Plan Updates The amendments to the Old Yellowstone District (OYD) Regulating Plan and FormBased Code that are necessary to ensure compatibility with this strategic plan need to be determined and executed. OYD priorities for investment in infrastructure should also be evaluated for consistency with this plan. The following adjustments may be needed:  Modification of the street plan to accommodate the promenade, highdensity housing district and retail anchor  Allowing greater flexibility in Zone 1 of the OYD Form-Based Code to allow for singleuse retail associated with a downtown anchor and a broader range of housing types that do not require ground-floor office or commercial  Revisiting street improvement priorities to best coincide with investments that support the conference center and hotel  Revisiting priorities for investment in the ‘town square’ to ensure implementation of the public plaza The actions needed to implement the OYD Plan updates are indicated in the table to the right.

28

Wayfinding Plan and Restroom Study Planning and design for a downtown wayfinding system and design and location of public restroom facilities were identified as needed elements during the planning effort.

T he ac tion s need ed to im plement t he wayfinding plan and public restroom study are indicated in the table to the right.

29

Option Projects North Platte Promenade and Retail Anchor The conditions necessary to secure significant private investment in a housing district will require specific actions that build investor confidence. City efforts should be directed to w a rd mi ni mi z i ng d eve lo p m e n t c o s t s and creating a development-suppor tive environment through public investment in the promenade and a secured site for the retail anchor.

T he ac tion s need ed to im plement t he promenade and retail anchor are indicated in the table to the right.

30

Promenade

Retail Anchor Site

North Platte Promenade and Retail Anchor (View Looking West)

31

West End Retail Anchor I f im p l e m e nt a t io n of t h e No r t h Pla t te Promenade and retail anchor is not possible, it is vitally important that a retail anchor site be secured opposite the plaza at the west end of 2nd Street.

The actions needed to implement the west end retail anchor are indicated in the table to the right.

32

Retail Anchor Site

West End Retail Anchor (View Looking West)

33

Schedule The sequence of activities needed to implement the Downtown Strategic Plan are outlined on the right

PRIORITY PROJECTS

OTHER PROJECTS

Circulation Projects

OPTION PROJECTS

34

www.ca-city.com Revitalizing North America’s Cities