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HomeMy WebLinkAbout1978 River Island Area Comprehensive Plan 1990W 14 March 12 , 1979 ` The following report was attached to the letter pf the Mayor t s relAti ve gey�;#Qn ' of Lansing's 1458 Master Plan known as the River Island Comprehensive Plan for fi 1990.' I / Document: 1978 River Island Area Comprehensive plan 1990 RIVER ISLAND AREA MPREHENSIVE PLAN 1990 LANSING, MICHIGAN OCTOBER, 1978 MAYOR Gerald W. Graves CITY COUNCIL Louis Adado Richard Baker Lucile Belen James Blair William Brenke Jack Gunther Robert Hull Terry McKane Merle Barnhart Gordon Cornwell Richard Gaus Emly Horne Charles Lyons Virginia Morales James Nelson Edward Remick PLANNING DIRECTOR Alan E. Tubbs _. INFORMATION AVAILABLE AT: Lansing Planning Department 119 North Washington Square Lansing, Michigan 48933 Telephone: (517) 487-1400 1 1 i 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 "Beauty and order in our environment are not frills. I am convinced that they are urgent necessities because they will determine whether our grandchildren can live in a decent land or whether they will be surrounded by a glittering junkheap...When planners, businessmen and architects work to try to save and improve our cities I think they are literally saving our lives. So I hope that when the history of our time is written, that history will write of us, their cities were places for people they lived satisfying lives in a setting worthy of free men..." Lyndon B. Johnson Remarks of the White House Reception for Citizens Advisory Committee on Recreation and National Beauty v March 29, 1968 ACKNOWLEDGEMENTS The Comprehensive Plan for River Island was prepared by the Lansing Planning Department and the citizens of the River Island area. The preparation of this plan was financed through the General Revenues Budget of the City of Lansing. We wish to thank ,,and acknowledge the many individuals and city departments/agelc�les for, their assistance in the preparation of the Physical DevelopmenntFlPlan: y RIVER,I`SLAND POLICY.REVIEW COMMITTEE DISTRICT NO' 1,4,(1NEST:SIDE) DISTRICT NO. 2 Frank B-nnedict William Bradleyr Kaye Baker Marg toCotsikas� ,� Beettty`BrAley l Louwillie Baugus Luther�lanagan ,1 Ron Callen / Leon Black T,�rney/Grat �,-• J.RCaton Enid Chappell i :xxs Ric�hard;Hegmon , % Hil a.Patnciia, Curran � Marie Cromwell Ann�fSron /�.,(Patrilck' yno�rnVDarnels�;i �``�., Louise Flory Walter P Maner, `� erude�Davis 1 David Harrington 'Elmer Mahson� .Finch Wallace•Higelmir tDouglasMcKinstry� therFlanagan' — %"Lucille Higelmire Fran, Mel / 1.Marrgout Gittle.+! > � 4Ian Kates Esther�Niver J Jeanne Gratz ..--Jane Kingsbury � G eor&' a off-'"' Turney Gratz — Lou u L'aFollette Reverend Rosa Lee Porter,, Irene Herrman —?_`Hobert L-aFollette eandtte*Snyder,,,, amesW alkinshaw ames Winckle \� l Dpartment/Age�cy StaffC ` Walter t '7;�Q&glas McKinstry Erin Middleton Mary Middleton Richaarrd Nelson 'garet U Merchant _____ �!, Richard-Petersc n McKissic , ; Diana Reed & Mrs. Walter Neller ,�r �''� yJeanette Snyde Nesin /' "Mary Williams Smith Gerald Wood Spahr i Spahr s Steele vela Vadnais kkVazny'�`�*"� Assessor's Office /. Board of Water and Ligi:L�,+ Building Department Capital Area Transportation.Authority ' ' X, Finance Department .�'� R�. ��`K, , Fire Department, - Housing and Redevelopment Department Human Resources Department .lam Parks Dspartmen Planning Departments PolicetDepartment r, Public Service Department Traffic Department Tri-County Regional Planning Commission n A special note of appreciation is given to the Willow Place Center staff, and Lansing Community College. a facilities during the many months of meetings with the 1 preparing this Plan. ­JWNDI N 3e (NORTH SIDE N `Ames�F,�Anderton .Douglas Bates Catherine Bates ' Eleanork,Brewer ; Ira Bryant'! , Rose Da e.- .a ,KeoDase tryan•D AFiouter�`'` cLeonard DehHoqter..., s ' —Eaitthh Gibbons -Dora-Gais'er Clement Koenigsknect ',% Roger Morey" Natalie More y. / t Robert,MbCrsr-�'�^'' VeronicthS "Jltze� ' DonafdQWilson'r r Stu School St affNKing'sle\y ` "'�+�, dmistration for uselof their ' iarious citizen committees in RIVER ISLAND POLICY REVIEW COMMITTEE Lansing, Michigan September 15, 1978 Mr. Richard Gaus, Chairman Lansing Planning Board Washington Square Annex Lansing, Michigan 48933 Dear Mr. Gaus and Members of the Planning Board: On behalf of the River Island Policy Review Committee and each of the District Committees, I am forwarding the draft of the River Island Comprehensive Plan for your consideration as an amendment to the Lansing Master Plan. This plan was adopted and unanimously endorsed at the meeting of the River Island Policy Review Committee held on September 7, 1978. Please consider this as a letter of transmittal and a request for favorable consideration at your earliest convenience. If you have any questions, please feel free to contact me. Sincerely, Walter P. Manor, Chairman River Island Policy Review Committee /Jae City of LANSING L A N 9 1 N G M I C H I G A N P"NNtNB DEPARTMENT 487-1400 4B9]] 119 North Washington Square December 28, 1978 Honorable Mayor Gerald W. Graves and Members of the Lansing City Council City Hall Lansing, Michigan 48933 Dear Mayor Graves and Council Members: The Planning Board takes pleasure in transmitting the latest revision to Lansing's 1958 luster Plan, known as the "River Island Area Comprehensive Development Plan-1990", which was unanimously adopted by the Board on October 3, 1978. This plan was prepared by the City Planning Department with assistance of the River Island Policy Review Committee, Citizen Committees for Planning Districts 1, 2 and 3 and many agencies and departments of the City. The Plan was supported and endorsed by each of the citizen committees and has been presented at two public hearings before the Planning Board, in accordance with the provisions of Act 285, Public Acts of 1931 as amended. The recommendations and strategies in the Plan are consistant with the City- wide Goals, Developmental Objectives and Policies for physical development adopted by the City Council. The River Island Plan contains background information for the planning area. It identifies the assets and problems of the area and recommends strategies to enhance the assets and solve the problems. Through written text, graphics and maps the Plan sets forth a blueprint for both public and private development and investment within River Island for the next six to ten years. The Plan is on file with the County Register of Deeds as an Official Master Plan revision. Further, the Plan is submitted to the Mayor and City Council for concurrence and implementation. RC/JS/vb attached Respectfully submitted Richard Gaus, Chairman Lansing Planning Board TABLE OF CONTENTS INTRODUCTION Locational Setting ....................................................1 Purpose.............................................................2 Process.............................................................3 Explanation of Terms.................................................5 BACKGROUND Population of Profile .................... .............................7 Land use Profile......................................................9 Housing Profile ..................................................... 14 Economic Development Profile ....................................... 21 Community Facilities ................................................ 24 Public Services Profile .............................................. 28 Environmental Profile ................................................ 32 Circulation Profile ................................................... 33 POLICIES, ASSETS, PROBLEMS, STRATEGIES Housing........................................................... 39 Economic Development Commercial/Business............................................ 45 Office........................................................... 49 Industrial........................................................ 50 Community Facilities ................................................ 52 PublicServices ..................................................... 56 Environmental Conditions and Land Use Conflicts ...................... 59 Circulation......................................................... 66 GENERAL PROPOSALS FOR DEVELOPMENT LandUse .......................................................... 75 Circulation......................................................... 76 IMPLEMENTATION................................................... 77 PRIORITIZATION..................................................... 79 APPENDICES........................................................ 81 LIST OF MAPS Map 1 River Island District Boundaries....................................4 Map 2 Generalized Land Use .......................................... 10 Map 3 Major Land Use Features 1978.................................. 11 Map 4 Generalized Zoning ............................................ 13 Map 5 Existing Housing Conditions ..................................... 19 Map 6 Average Value of Owner Occupied Housing Units ................. 20 Map 7 1975 Sales Ratio ............................................... 21 Map 8 Schools in River Island ......................................... 25 Map 9 Parks & Recreation Centers in River Island ....................... 26 Map 10 Churches in River Island ....................................... 27 Map 11 Separgted Sewer Areas ....................................... 28 Map 12 Water Wells and Lines ......................................... 28 Map 13 Electric Transmission ......................................... 29 Map 14 Electric Distribution ........................................... 29 Map 15 Electric Underground .......................................... 30 Map 16 River Island Lighting .......................................... 30 Map17 Steam Lines... ............................................ 31 Map 18 Fire Districts ................................................. 31 Map 19 Police Districts ............................................... 32 Map 20 Average Daily Traffic Volumes - 1974 ........................... 34 Map 21 Accident Rates for Selected Intersections ....................... 35 Map 22 Bus Routes in River Island ..................................... 36 Map 23 Bicycle Routes ............................................... 37 Map 24 Housing Areas Recommended for Application of Strategies Designed to MaintainAssets ............................................... 40 Map 25 Housing Areas Recommended for Preservation & Rehabilitation.... 41 Map 26 Housing Areas Recommended for Selective & Major Redevelopment 42 Map 27 Major Non -Residential Areas in River Island ..................... 50 Map 28 Areas Recommended for Screening and Buffering ................ 60 Map 29 Areas Recommended for Design Controls ........................ 61 Map 30 Air, Noise, Visual Pollution Created by Industrial Activity ........... 62 Map 31 Residential Streets with High Volumes of Traffic .................. 68 Map 32 One -Way Streets Recommended for Return to Two -Way Service ... 69 Map 33 Areas Recommended for Intersection Changes .................. 70 Map 34 Proposed Land Use Plan ...................................... 75 Map 35 Proposed Circulation Plan ..................................... 75 LIST OF TABLES AND FIGURES Table I Change in Population 1960-1975 .............................7 Table II Age Distribution 1970.......................................7 Table III Median School Years Attended by Census Tract ...............7 Table IV Median Income by Census Tract .............................8 Table V Occupation by Head of Household ............................8 Table VI Change in Household Characteristics .........................8 Table VI Housing Trends .......................................... 14 Table VIII Comparative Housing Trends 1940-1975 .................... 15 Table IX Major Housing Unit Losses ................................ 16 Table X Trends by Type of Structures ......... :.................... 17 Table XI Tenure Type Distribution 1940-1978 ........................ 17 Table XI Age of Housing ........................................... 18 Table XIII Housing Conditions 1978.................................. 18 TableXIV Vacancy Data ............................................ 20 Table XV Activity Nodes by Type of Activity .......................... 21 Table XVI Commercial/Office Establishments ......................... 22 Table XVII 1974 Central Business District Employment .................. 22 Table XVIII Gross Square Footages in Core Area by Type and Occupation 23 Table XIX Manufacturing Employment 1976 ........................... 23 Figure 1 Land Use Distribution..........................................9 Figure 2 Housing Trends (1940-1978)................................. 14 Figure 3 Housing Units as a Percent of City & Region ................... 15 FOREWORD Unique in its character and opportunities, Central Lansing is the keystone that anchors the future of the city. A viable business, educational and financial district, a seat of government that reflects the hearts and pride of a great State, and a dynamic people -oriented residential area, are the three ingredients that must be blended harmoniously; blended so as to complement one another but not at the expense of a particular segment. The current housing stock must be maintained and the unit.base increased to provide a strong residential appeal to citizens who work in the River Island Area, and shop in the Central Business District. The establishment of a community that preserves the old and incorporates the new is the highest priority. The State must assume its responsibility to plan and proceed on establishing a seat of government in Central Lansing that will serve the future generations of Michigan residents. Not only functiona: in nature, the Capitol area should reflect the style and energy of our State. The Central Business District will strengthen as more residents from residential development in the immediate area shop in downtown, more state and other government workers take advantage of the goods and services offered by the merchants, and more faculty and students associated with Lansing Community College further impact and utilize the CBD area. The essence of the River Island Area Plan lies in new and creative approaches to accommodate the business and institutional demands with the high quality residential life style required by the citizens. The Area Plan is dedicated to accomplishing this objective. Richard Peterson, Chairman District No. 2 � 11 MICHIGAN LOCATIONAL SETTING Lansing, the capital city of Michigan, is located in the Clinton -Eaton -Ingham Tri- County region which is situated nearthe center of the lower peninsula of Michigan. It is estimated that in 1976, 410,661 persons lived in this region. Major features of the region include the Capitol building, Michigan State University, Oldsmobile and Fisher Body division of General Motors Corporation and many acres of prime agricultural land. The continued growth of these features with the exception of agricultural land, has influenced dramatic changes in development patterns and has generated large numbers of employees and visitors who utilize the central area of Lansing. The major urbanized area within this region is Lansing -East Lansing where approximately 45% of the population lives. Lansing, with 134,720 persons, is the ' single largest municipality in the area. The north central section of Lansing, known as River Island, is the focus of this study. Only about 14% of the city's total population resides there. However, 75% of all employment opportunities within the city at the many government, industrial and retail establishments are located within the River Island area. "River Island" is a term coined in 1972 during a study of the west side elementary schools conducted jointly by the Lansing School District and Model Cities Program. The River Island refers to the somewhat isolated area within the school district due in part to the existence of the Grand River which borders on three sides and the city ' limits on the fourth (west) side. In addition, major land developments such as 1-496 freeway, the State Governmental Complex, the railroads and the General Motors Corporation plants (Oldsmobile and Fisher Body) tend to further geographically separate the west side residential area, with its schools, from other residential ' neighborhoods of the city. Hence, the extensive land use diversity and unique geographic features have led to the continued use of the descriptive name of "River Island". INTRODUCTION Purpose of the Plan Lansing public officials are confronted with an ever increasing number of urban growth problems. Such problems include decreasing amounts of developable land on one hand, and, on the other hand, increasing housing deterioration and demands for better circulation, recreation facilities and public services. These issues reflect a conflict between maintaining a high quality of community life and increasing municipal revenues to pay for rising service and facilities costs. This report presents a new approach to the Comprehensive Planning Process and management of the municipal affairs of Lansing. The. 1958 Lansing Master Plan and its amendments once provided adequate guidelines in some physical development categories but it is outdated and lacks the detailed analysis of possible impacts of various actions on the provision of city services and facilities. Revisions to the 1958 Plan have not kept pace with physical changes in the city. Federal and state funded programs as well as private developments have been implemented piecemeal without the benefit of long range policy direction for maintaining, preserving or improving the particular land uses and their environment. Many of today's problems associated with physical development, are the result of past decisions and relate to the lack of specific expression and agreement by the city and by the citizens as to what constitutes desirable land development and what can be done to maintain the development once built. Also, the absence of a mechanism for monitoring or evaluating projects to determine theireffects over time has contributed to current physical development problems. The Mayor, City Council and administrators require a set of policies that are beyond the traditional, generalized, long-range land use map to implement comprehensive physical development programs. The policy plan framework is designed to assist in the decision -making process and be responsive to the wide range of users who are part of the municipal development and management processes. Also, the city's Capital Development and Budgeting process requires these current guidelines and direction for future needs to program public improvements and operating budgets for municipal services. To meet future needs and influences for change in the community, a major revision of the city's Master Plan is required. A new comprehensive plan for Lansing is programmed for completion in 1980. To accomplish this, the city of Lansing has been divided into four (4) planning areas. River Island was chosen as the first area to be revised due to the increased redevelopment pressures and changes occuring within the boundaries. The River Island area is primarily defined by the Grand River on the north, east and south. The western boundary is represented by the Lansing city limits along Clare Street. This area is approximately 2,445 acres or 12% of the total land area of the city. River Island contains the oldest and perhaps most historical areas of Lansing as well as the State Capitol Complex, Lansing Community College, several unique residential neighborhoods, General Motors Corporation industrial plants and the Central Business District. There are approximately 19,800 persons living in the area which represents 14.2% of the total city population. ` The Comprehensive Plan The Development Plan is a document which set forth policy statements for decision - making and is adopted by the Planning Board and City Council. The cooperative efforts of public and private sectors are required to formulate this plan and establish priorities for improving the "quality of life for everyone". The Development Plan commonly referred to as "Master Plan" consists of written text, maps and other graphic aids to describe present and future land use, housing, circulation, community facilities, business and industry and urban design features of the city. The plan provides a frame of reference and a blueprint for future public and private development and re -investment. It must be constantly re-examined as conditions change and is comprehensive in that consideration is given to physical, social and economic conditions. This plan utilizes policies as a device to direct growth, development and change which is different from the traditional Master Plan. There are no forecasts, or extensive amounts of statistics contained in the document. It is the intent of this plan to avoid reacting to the traditional growth projection approach but guide development, preservation and accommodate change. It is a focus for guiding and directing those things we as a community want to see happen. The plan reflects the capability to implement recommendations within a ten year time frame. The plan must be reviewed and revised annually to account for changes in policy and new programs for implementation. Legal Basis for the Comprehensive Development Plan The Municipal Planning Commission Act, Act 285 of Public Acts of 1931 (Michigan Law Ref. No. 125.31) establishes the responsibility for the local Planning Board to prepare a Master Plan for physical development for the municipality The city of Lansing has had the benefit of Master Plans prepared by prominent consulting firms: The Lansing Plan, 1921 - Harlan Bartholomew and Associates The Comprehensive City Plan, 1938 - Harlan Bartholomew and Associates The Comprehensive Master Plan,1960-1980, Ladislas, Segoe and Associates The city has adopted six significant revisions for this 1958 Master Plan: 1967 Central City Development Plan, Villican-Leman Associates 1969 Master Plan Revision of the Forest View Community, City Planning Department 1973 Miller Marscot Development Policies, City Planning Department 1974 Central City Development Plan, Urban Renewal Area No. 2, City Planning Department 1974 Edgewood Boulevard Corridor, City Planning Department 1976 Lawton Neighborhood Plan, City Planning Department Plan Organization The Comprehensive Plan Document contains three major sections: (1) Background, (2) Problems, Assets and Strategies, and (3) Priorities and Implementation. The document is written and organized to promote its use by citizens, decision -makers and technicians. (Background) - The background section provides an overall description of the present conditions of the physical development and the people living in the River Island area. The population and household description are provided for information only with no attempt to identify or explain trend/implications for planning. The information profiles for land use and physical characteristics however, provide a discussion on the trends and implications for planning. Detailed information for each district is provided in the respective district plans. (Analysis -of -Assets/Problems and Implementation Strategies) - This section contains six functional categories (housing, transportation, economics, public services, community facilities and environment and land use) with policy statements and corresponding rationale for the River Island area. The assets and problems have been analyzed with respect to these area policies. Statements for strategy of action are described for enhancing asset and resolving problem situations and provide direction to meet city policy requirements. A brief strategy statement to include geographic area and agency responsibility is used within the text of the document (a detailed explanation of program strategies is found in the appendix). 2 The proposed generalized Land Use and Circulation Plans provide an overview of the River Island physical development patterns. This plan portrays the coordinated and integrated use of land in River Island and the means of circulation within and the access to the various land use areas. This generalized land use map will be used to ' guide the application of land use regulations. (Priorities Section) - Priorities for program strategies and implementation actions were established within each functional area, first at the district level, then blended L for the River Island area. These priorities provide guidance to the implementing departments and decision -makers in preparing the city's Capital Development Program and obtaining state and federal resources. Further, the priorities provide direction for revisions to administrative procedures and legislation. Plans and sketches are shown throughout the document and provide general solutions to existing problems in the River Island area. The designs are not complete or final solutions but are suggestions which can be improved or modified to fit different situations. tComprehensive Plan Process and Citizen Participation The Mayor and City Council are charged with providing general direction for the growth and development of the city. In line with this responsibility, the City Council adopted the city-wide statement of goals and objectives in July, 1976. This statement was initially formulated to guide the preparation of the Capital ' Improvements Program. Using this as the basic direction, the Planning Department was instructed to develop policies to reflect the adopted goals and to initiate the process to revise the 1958 City Master Plan within this policy framework. The initial step was to formulate a policy committee to guide and participate in the formulation of the River Island Comprehensive Plan process. This Policy Committee was established when the mayor appointed a 22 member committee in January, ' 1977. This committee became known as the River Island Policy Review Committee (RIPRC) and was made up of representatives from various interest groups in River Island including residential, business and industrial concerns, as well as the college and central business district. The committee's initial task was to assist in formulating city-wide policy statements. The committee spent from February through June of 1977 formulating the city-wide policies which were then transmitted to the Planning Board and submitted to the Mayor and City Council. In October of 1977 City Council officially adopted these policies. The city-wide goals, objectives and policies are available in a separate document at the Planning Department. The charge of the River Island Policy Committee, following their work on the citywide policies, was to formulate specific policies for the River Island area. The first step was to hold a series of public forums during the summer of 1977 at which time the committee was seeking information, advice and input from technicians and citizens about specific needs of River Island for the various functional categories described in the goals and objectives. The second step involved formulating the area policies including rationales which were completed in October of 1077 and submitted to the district committees as a guide in preparing the District Plan. L Concurrently with the Policy Committee's deliberations on the River Island Area Policy Document, the Planning Department established three planning districts (see Map 1) within River Island and had public meetings in each district. Persons who lived or who had business interests in the district attended. As a result of these meetings approximately 60 persons indicated a commitment to meet bi-weekly to formulate a development plan for their individual districts. �1 At that point the Policy Committee became inactive, however, many members also participated at the district planning level. The three planning districts, boundaries and participation level were as follows: District 1, generally west of Logan Street, north of 1-496, south of Saginaw, bounded on the west by the city limits, represented almost solely a residential community. Approximately 13 residents participated in this committee with a mailing list to receive information and meeting minutes of about 50 individuals. District 2 consisted of the area bounded on the north by Saginaw Street, on the - east and south by the Grand River to the west city limits, then following 1-496 back to Logan Street which is the western boundary. This area had approximately 25 members on the Committee, with an approximate mailing list of 50 individuals. District 3 was the remainder of River Island, lying north of Saginaw Street and had approximately 15 representatives and a mailing list of 25. The North Lansing Commercial District bounded by Maple, Cedar, Grand River and East North Street is also included within this district. The North Lansing Community Association provided the citizen base for the historic district. The District Committees met bi-weekly and often weekly to discuss basic information about their neighborhoods, identify the assets and problems and the solutions to enhance assets and eliminate problems. Special studies on Logan Corridor, Washington Square Development Plan and North Lansing district improvements were thoroughly discussed at these district meetings. The committees' identified assets and problems using the group nominal process. This process involved the staff preparing various questions that would allow the committee participants to formulate their own statements of problems or assets and then, through the media of each person having an opportunity to speak, express what their problem was within specified functional categories. The individual's comments on assets and problems were summarized and distributed to the appropriate technical agency for review and identification of solutions to solve problems or suggested ways of enhancing assets. These solutions as suggested strategies were then presented back to the district committees by using graphics and narratives for further review and comment by the committee members. Public meetings were held in each district to explain the proposed strategies formulated by the district committees. The Policy Committee was re -activated to review the district plans and the "blended" area plan and recommend its adoption to the Planning Board. The Planning Board scheduled a formal public hearing with proper notification as prescribed in Act 285 of P.A. of 1931. Once the Planning Board adopted the comprehensive plan revision it was recommended to the Mayor and City Council for adoption. The plan finally was registered with the County Clerk as an official master plan for the River Island area. It is important to note that various media were used to keep the citizens of River Island informed about meetings and progress of the plan revision. Local television stations (WJIM and WILX), the State Journal and North Lansing Gazette and the Community Development Newsletter were frequently used to advertise meetings and explain She plan process. There were three mailings to every address in River Island (approximately 10,000 units) and posters distributed to churches, stores and similar places where citizens were likely to visit. And finally minutes and information of each meeting were sent to over 150 persons who were on district mailing lists. This same process, with some modification of technique and timing, is to be used in the other three planning areas over the next two year period. It is anticipated that the committee structures will continue on for future monitoring of plan implementation. The district committees will end their intensive involvement but start this continuous forum approach to get at the implementation requirements of the Plan. The advice of the committee for frequency of meetings and a lasting commitment to continue cooperative efforts between neighborhoods and the city will be a key factor in continuing the district and policy committee structure for the planning areas. The Planning staff will commit its personnel to support these committees with the expectation of meetings held on a monthly or bi-monthly basis. RIVER ISLAND 4 Explanation of Terms Terms, words and phrases are defined to assist the Comprehensive Plan user in understanding and applying this document. ' (Central Area) - The Central Area is that portion of River Island generally bounded by properties fronting on the west side of Sycamore Street on the west, Saginaw Avenue on the north, Chessie Railroad on the east and 1-496 along the south. (Central Business District - CBD) - An area generally bounded by Shiawassee Street on the north, Grand River on the east, Lenawee Street on the south and Capitol Avenue along the west. The CBD is the traditional center of business and retail activity for the city. (City or City of Lansing) - Generally refers to the Mayor, City Council and to all the city departments, boards and agencies. However, in obvious instances the word refers to the geographic municipal boundaries. (Code Compliance) - The correction of all violations of the Lansing Uniform Housing ' and Zoning Code. (Comprehensive Development Plan) - Or Master Plan is a document composed of maps and text which describes the present and future residential, circulation, business, industry, community facilities and urban design features of the city. It sets forth policy guidelines for future development and improvement of the community. (Goal): City -Wide Goal Statements - City-wide goals are very broad and general statements of what we would like our city to be and do. These goal statements provide the basic framework for planning and budgeting our tax dollars for ' capital or public improvements needs in the city. (Approved April, 1976) Developmental Objectives - Developmental objectives are long range statements of specific activities which must be implemented in orderto achieve corresponding goal statements. (Approved April, 1976) (Housing Density) - A measure of the number of housing units within a specified geographic land area. Net Density - The ratio between a specified number of housing units and an acre of land which is used for residential purposes exclusive of public parks, I streets and non-residential land uses. Gross Density - The ratio between a specified number of housing units and an acre of land inclusive of all other land uses. Low Density Housing - An area having a net housing density of less than six (6) units per acre. Moderate Density Housing - An area having a net housing density of more than six (6) and less than twenty (20) units per acre. Medium Density Housing - An area having a net housing density of more than twenty (20) and less than fifty (50) units per acre. ' High Density Housing - An area having a net housing density of more than fifty (50) units per acre. (Housing Survey) - A survey tool used to determine the physical condition of existing housing by visual inspection of the major exterior elements of the structure. Standard - A sound structure; good condition which may have some deficiencies capable of being corrected through normal housekeeping and maintenance. Deteriorating - A structure in fair condition requiring no extensive repairs but needing correction of defects through chimney repairs, eave replacement, roof shingles replaced, exterior wall or foundation cracks repaired, glass pane or screen replacement. Substandard -A building in poor condition and in need of extensive repairs such as chimney replacement, roof structure repair, extensive repair to walls or foundation and replacement of windown and door frames. Critical - A building in very poor or dilapidated condition which may be in ruins or with very extensive defects and questionable feasibility for repair. (Housing Units) - A building or a portion thereof, designed for occupancy by an individual or family for residential purposes and having kitchen and bathroom facilities. (Lansing Uniform Housing Code) - An ordinance which provides the minimum requirements for the protection of life, limb, health, property, safety and welfare of the general public, the owners and the occupants of existing residential buildings. (Neighborhood Design Characteristics) - Those features of an area which are unique to it or are particularly identifiable such as architecture, street layouts, landscaping, and similar characteristics. (Neighborhood Development Areas - NDA) - Those areas which are designated for housing major rehabilitation, preservation or acquisition, and clearance in the Community Development plan. (Platting) - The partitioning or dividing of a parcel of land which is recorded, mapped and charted with the County Plat Board. Replatting is a process of changing the boundaries of a recorded lot. (Policy): City -Wide Policy- A very general application of the goals and objectives. These will indicate general uses of land in terms of where we live, work, shop and play and how we trav@I. (Approved October, 1977) Area Policy - Applies city-wide policies to situations in the specific area, either agreeing with, detailing, or changing them. They will indicate specific uses of land in terms of where we live, work, play, shop and how we travel (included in the Area Plan). (Plan Elements): Asset - A positive feature or condition which contributes to the quality of life in a given geographic area. Problem - A feature or condition that has an adverse/negative affect on the livability or economic vitality of a given geographic area. Strategy - The method used to employ resources or programs to resolve problems or enhance assets in fulfilling policies and achieving objectives. Rehabilitation Standards - The guidelines for interior and exterior improvements of the physical condition of the individual housing units and the surrounding areas which are beyond the actions required to comply with the Housing Code. Urban Design - The visual and aesthetic appearance or image of the buildings, streets, light fixtures and the general physical environment as perceived by persons living, working or passing through an area of the community. It includes the identity, distinction and personality given to physical features and geographic areas such as historic landmarks, architectural styling, natural foliage and similar aesthetic amenities. Zoning - The division of the community into districts to regulate the use of land and structures and to minimize potential conflicts by insuring thatthe land uses are properly situated in relation to one another. 9 I 1 L BACKGROUND The following background profiles describe the major features of the River Island area. These have been compiled from the extensive information gathered and analyzed during the planning process. The profiles concentrate on providing information on the major uses of land and howthose uses compare with the city and region. The River Island area contains within its boundaries, all of the major elements of the city and is the focus of substantial public and private investment which if brought to fruition, will make a major contribution to the revitalization of Lansing. Contained within the area is a unique mixture of land use: residential, parks, office, commercial and industrial concerns all within close proximity. This background section will attempt to draw an information picture of the area including who lives, works and shops here as well as what cultural and entertainment activities are available, and how people move in and through the area. Data Sources The data in this background description come from a variety of sources which were collected by the Comprehensive Planning staff. Sources used include the U.S. Bureau of Census; R.L. Polk and Company, "Profiles of Change," City of Lansing Master Parcel Base File; City Assessor's records and several major Planning Department reports which did not coincide with the appropriate census tract boundaries, and some data items for North Lansing were estimated on a percentage basis. POPULATION PROFILE This section is intended to describe the general population characteristics found in River Island. Population There are presently 19,860 persons living in the River Island area. This represents 142% of the total Lansing population (139,000). While the City of Lansing's population has grown almost 5% between 1970 and 1975, the River Island area population declined by 18.4% (see Table 1). This fact can largely be attributed to expansion of public and private non-residential development into residential areas. Other factors (declining birth rates, elderly households, etc.) have also contributed to decline. Table I Change in Population 1960-1975' Year Population Change %Change 1960 31,108 1970 25,439 -5,411 -18.1 % 1975 19,860 -4,493 -18.4% *U.S. Census, 1960 & 1970, Lansing Planning Department, 1975" "1975 figure is an estimate based upon the number of housing units in the area multiplied by the average number of persons per household (persons in household divided by household heads). Age Composition The age composition of River Island residents is characterized by an aging population with a lower percentage of people under 18 (32%) than the city (36%) and a higher percentage of people 62 and over (13%) than the city as a whole (10%). Table II Age Distribution 1970' Under 18 River Island City Under 18 7,755 (32%) 47,367 (36%) 18-61 13,236 (55%) 71,035 (54%) 62(plus) 3,352 (13%) 13,155 (10%) Total 24,343 (100%) 131,557 (100%) U.S. Census, 1970 Educational Attainment The U.S. Census calculates median school years completed for persons 24 years and older. The median number of school years completed within the City of Lansing was 12.2 years. Five of the eleven census tracts in River Island show the median of 12.2 years. Table III Median School Years Attended by Census Tract (1970 Figures) Years Completed 13 12 11 10 9 2 3 4 5 6 7 14 15 16 18 19 Census Tract 7 Income The best available information is 1970 census data. In 1970, the median income in River Island was $6,700. Table IV below illustrates the median income of each of the census tracts included. Table IV Median Income of River Island Residents by Census Tract' (1970 Figures) Census Tract: 2 8,766 Census Tract: 14 2,800" 3 8,739 15 5,490 4 9,400 16 11,333 5 8,388 18 4,282 6 4,924 19 6,105 7 5,544 *U.S. Census, 1970 "Census Tract 14 is the Central Business District Nine (9) of the ten (10) census tracts in River Island were below the city-wide median income of $9,410 in 1970. Furthermore, six (6) of the nine (9) fall below the low income level ($7,525 as established by federal guidelines for 1970). Occupation The occupation of heads of household in River Island in 1970 are compared to the distribution of household heads within the city in Table V. Table V Occupation of Head of Household, 1970' River Island City (%) Prof., Tech., Mgr. 16% 21 % Sales, Clerical 31% 30% Craftsman, Foreman 11 % 13% Operatives, Incl. Trans. 21% 18% Laborers 5% 4% Service 14% 13% Others 2% 1 % 100% 100% U.S. Census, 1970 The occupational mix of the River Island area is essentially the same as the city. The only major difference is in the category of Professional/Technical/Managerial. F Employment According to the 1970 census, 11,312 persons in River Island were in the labor force. This represented 20.3% of the total labor force in the city. The average unemployment rate for River Island in 1970 was 8.6%, substantially higher than the city-wide figure of 5.25% City-wide unemployment rates have fluctuated up and down since 1970, but the most recent figures available (December, 1977) show that the rate has again stabilized at 5.25%, more recent figures (since 1970) for unemployment rates in River Island have not been calculated. The available data did not lend itself to disaggregation to census tract breakdown with any accuracy. I Household Characteristics Comparison of the figures for household characteristics have been taken from U.S. Census data for base years 1960 and 1970. The following table indicates number of households, persons per household, total one person households, and female heads of household. Table VI Change in Household Characteristics One Person Female Head Households Persons/ Households Households Household City RI City RI City RI City RI 1960 33,558 10,645 3.17 2.92 5,352 2,584(24%) N.A. N.A. 1970 42.643 9,319 3.06 2.74 8,079 2,823(30%) 9% 11 % Analysis of more recent data published by R.L. Polk Company shows that household characteristics have continued to develop according to the same pattern shown in the above table. Figures for base period 1974-75 show further decline in the number of households and persons/households since 1970. At the same time one person households and the number of households headed by females continue to increase. Actual figures are not presented due to discrepancies between data sources. It is felt, however, that this comparison is sufficient to establish trends. 1 School Enrollment (Education) Since 1970, the Lansing School District has realized declining enrollments throughout the city. The River Island area is no exception. In 1978, an estimated total of 4,065 students (K-12) lived in the River Island area. This is a continuing decline of elementary age children in the River Island area which is being experienced throughout the city. This can partially be accounted for in that a primary factor is the cluster school concept which transports many elementary (not kindergarten) children to schools outside the area, as well as bringing other children in. The four River Island elementary schools included in clusters are Vivian Riddle, Willow, Genesee and Main Street Schools. Also, since there is not a junior high school in River Island, most students in those grades are transported outside the area. Sexton High School, with 1,542 students, is located on the western periphery f� of River Island. 1978 Enrollments by Elementary School 1970 1978 Walnut Street School 451 318 Genesee Street School' 315 247 Main Street School' 305 241 Vivian Riddle School' 328 420 Verlinden Street School 330 323 Willow Street School' 597 371 Source: Lansing School District, 4th Friday count 'Included in Cluster Education Concept (Colleges and Vocational Schools) Based on 1975-76 data, there were 2,176 persons enrolled at Lansing Community College who resided in the River Island area. This represents 11.2% of the River Island population. Concentrations of LCC students in River Island are located primarily in the central area of the city adjacent to the college or in the southeastern corner of the River Island area. LCC students may continue to be an increasing segment of the River Island community. . LAND USE PROFILE The total land use area of River Island is 3.7 square miles (2,445 acres). The area is the most intensely developed in the city. A variety of activities take place within River Island because it contains a full spectrum of urban developments including residences, retail and wholesale establishments, offices, schools, parks and industries. Also located here are many major city, regional and state facilities. Existing Land Use The inventory of existing land use was compiled from computerized printouts from the City Assessor's records. These records classiy parcel land use only by the primary use. This technique is not 100 percent accurate because various uses are sometimes intermixed on the same parcel. In the multi -story buildings, particularly in the eastern portion of River Island, ground floor uses frequently differfrom uses on upper floors. Nevertheless, the technique does give a close approximation'of the character of River Island. Figure 1 graphically illustrates the area's net land use. LAND USE DISTRIBUTION FIGURE 1 VACANT LAND & BUILDING RESIDENTIAL 208 ACRE, 12% 810 ACRE, 45% pl� TRADE MANUFACTURING 242 ACRE, 14% CULTURAL & — RECREATIONAL 96 ACRE, 5% TRANSPORTATION COMMUNICATION & UTILITIES 202 ACRE, 11 % 50 ACRE, 3% SERVICE 174 ACRE, 10% The categories in the previous chart of land use are from the city of Lansing Land Use Code Manual. One category, service, is not as familiar as others. It covers a broad range of uses including finance, insurance, real estate, personal services, repair services, contractors, government, professional services, schools and religious institutions. Alleys, railroads rights of ways, and bus terminals are included in the transportation category. Not included are the approximately 64 miles of street pavement. Map 2 indicates generalized land use in River Island and Map 3 depicts the major land use features. A generalized description of land uses follows. More detailed information is located in the appropriate sections of the profile. GENERALIZED LAND USE MAP MAP 2 AUGUST, ......... 1100 FIEIM3 �000 ❑ Dad 000b flu D000000 0IF][E0o[ Do T1 E:7A®®o °� _:ao�ooaao� .. M El El El El El M.l. El [I[:::]= E::] 11 El El 12 D O Ljl gyp, ❑ �aoo IZ:l EM E 00 M 0 0 E m �aaO ffJ 1= El El E9 0 N M 0 9 Ea ESW E BUSINESS OFFICE E] INDUSTRIAL GOVT./PUBLIC & SEMI-PUBLIC INSTITUTIONS/LITILITIES 0 PARKING/VACANT LAND 10 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 A E] EXISTING El PROPOSED MAJOR LAND USE FEATURES 1978 11 Land Use Changes A number of major land use changes have taken place in the River Island area since the adoption of the 1958 City Master Plan. The following is a list of the major construction projects since 1958 having an impact on River Island's land use: 1. The 1-496 expressway, Oakland extension, and the proposed Logan -Birch Corridor road construction projects. 2. Oldsmobile and Industrial Welding's ongoing expansions south of the expressway. 3. The State Government's ongoing expansions west of the Central Business District. 4. The continuing conversion of homes into a more intense residential or business use (primarily inside or adjacent to the Central Business District). 5. The expansion of Lansing Community College, Michigan School for the Blind, and St. Lawrence Hospital. 6. The City Renewal activities in downtown Lansing, including the development of the Riverfront Park and the Washington Square Mall. 7. The rehabilitation and redevelopment of Neighborhood Development Area 1. 8. The proposed Capitol Commons housing project's clearance of one-third of its 23 acre site. 9. The twelve acre Kingsley Place project containing the Vivian Riddle School, a neighborhood facility building, a community pre-school nursery, a park, and recreational facilities. 12 GENERALIZED ZONING MAP MAP 4 AUGUST, 1978 , Zoning The accompanying map (Map 4) illustrates how the land,is zoned in River Island. It clearly demonstrates that the area east of Logan Street, especially within the Central Business District, is generally zoned for intense development--mufti-family residential and business. West of Logan, the land is zoned primarily for single family use. Information on zoning, to be meaningful, must relate back to land use data. Comparison of the land use and zoning maps indicates that land generally is being used in accordance with its' zoning. uu uu jug •^•^•^•^^-'• ❑❑❑❑❑❑❑❑ o❑❑❑❑ o❑oaaDoo��op. a� � 00 �Q 00 � as ❑ ❑� ❑ - E � o —El o ❑o.o.... �.. El 110 �� ST�i E'.'.' COw LEx ❑❑� ❑❑ o❑❑❑ oED ❑ �� O �a❑ a❑ a ❑❑ a❑o®a❑D❑o Do o TWO FAMILY & MULTIPLES ❑ WHOLESALE & INDUSTRIAL ® OFFICE & COMMERCIAL M C.U.P. 1 13 HOUSING PROFILE AND TRENDS Both the supply and condition of housing in the River Island Study Area have been declining for many years. A tremendous number of housing removals have occurred during the last 16 years because of various state, local governmental and private development activities. New constructions in the area have not increased sufficiently to replace the number of housing units that were lost. The purpose of this section, therefore, is to provide the research background needed for developing goals and policies which will serve as the mechanism for improving the housing situation in the River Island Study Area. First, the growth and decline of the housing market will be analyzed. Second, the tenure and structural types of housing will be evaluated. Next, housing conditions, age of structures and housing values will be examined to determine the characteristics of the housing stock. Finally, the vacancy rates and sales transactions within the study area will be discussed to determine the stability of the housing market. The Housing Market The study area gained 1,159 housing units between 1940 and 1950, an increase from 9,420 in 1940 to 10,579 in 1950. During the 1950 to 1960 decade the study area experienced a slower rate of growth of 6.3 percent compared to 12.3 percent in the previous decade. Between 1960 and 1970 the study area showed a reverse trend; a decrease of 1,327 housing units. This decline was caused by a large number of withdrawals from the housing market during the mid 1960's and continues up to the present. The following Table shows the changes that have occurred in the housing stock in the River Island Study Area. Table VII Housing Trends, River Island Area 1940-1978 Change Year Number of Housing Units Number Percent 1940 9,420 1950 10,579 1159 12.3 1960 11,242 663 6.3 1970 9,914 -1327 -11.8 1978 7,903 -2012 -20.3 Sources: U.S. Census of Housing 'Lansing Planning Department estimates to June, 1978, Building and Demolition Permits 14 Estimates of the housing stock between 1970 and June,1978 show a further loss of over 2,000 units or a 20.3 percent decline in the River Island Study Area, compared to a city-wide increase of almost 6,600 units (14.6% plus), and the region's gain of about 22,600 units (20.4%). Table VIII and Figures 2 and 3 show comparative housing trends in the River Island area, the city of Lansing and the Tri-County Region. While the city and the region had continuous growths in housing from 1950 to 1978, the area experienced a decline beginning in 1960. In 1950, the River Island area contained over36 percent of the city's and 14.5 percent of the region's housing market. By 1960 the area's share of the housing market dropped to 31.8 percent of the city's and 12.4 percent of the region's housing supply. Part of the addition to Lansing's housing stock, however, came from urbanized areas annexed to the city after 1950. During the 1960 to 1970 period, the city gained 9,800 housing units or 27.6 percent while the region's incrase was 19,442 or 21.3 percent. During the same period the River Island area experienced a loss of 1,330 housing units, or 11.8 percent, because of conversions, mergers and demolitions. FIGURE 2 HOUSING TRENDS (1940-1978) 140 130 120 110 �r 51 100 0 90 M = 80 H Z C- 70 H � 60 Z 50 865 D O = 40 30 20 10 15 0 0 0 o co 0 v LO W n o rn rn rn rn rn 0 SOURCE: U.S. CENSUS LANSING PLANNING DEPARTMENT TRI-COUNTY REGIONAL PLANNING ESTIMATES Table VIII Comparative Housing Trends 1940 to 1978 River Island Study Area, City of Lansing, SMSA River Island City of Lansing SMSA Change Change Change Year Housing Units Number Percent Housing Units Number Percent Housing Units Number Percent 1940 9,420 23,269 1950 10,579 +1159 +12,3 28.887 +5618 +24.1 73,060 1960 11,242 + 663 + 6.3 35.468 +6581 +22.8 91.083 +18023 +24.7 1970 9,915 -1327 -11.8 45,269 +9801 +27.6 110,525 +19442 +21.3 1978 7,903• -2012 -20.3 51,865 "' +6596 +14•.6 133,119" +22594 +20.4 Sources: U.S. Census *Lansing Planning Department Estimates "Tri-County Regional Planning Commission Estimates "'Gladstone Associates, Lansing Housing Market Analysis, 1978 Revised June 30, 1978 FIGURE 3 RIVER ISLAND HOUSING UNITS AS PERCENT OF CITY AND REGION 5o 40 30 z w U w a 20 10 0 1 1 1 I I rn rn rn co YEAR SOURCE: U.S. CENSUS LANSING PLANNING DEPT._ESTIMATES 15 TRI-COUNTY REGIONAL PLANNING ESTIMATES Demolitions Housing losses due to major public and private development projects were estimated at more than 2,860 housing units between 1960 and June, 1978 in the study area. The impact of these various activities over the 17and 1 /2 year period was to reduce the housing inventory by over 200 units per year between 1960 and 1970. Between 1970 and June, 1978, the withdrawal rate decreased to almost 100 units per year average. A listing of the major removals of housing units is shown in Table IX. Table IX Major Housing Unit Losses 1960-70 and 1971-78 River Island Study Area Project Number of Housing Units 1960-1970 1971-1978 State Highway Construction 1-496 819 Logan -Birch 71 Oakland Extension 280 State Governmental Complex 293 261 Oldsmobile Expansion 482 125 Urban Renewal 143 24 Kingsley Place 43 Capitol Commons 177 Lansing School District and N.A. 64 Vivian Riddle School Michigan School for the Blind 20 Community Development Program 32 Medical Center St. Lawrence Hospital 33 28 Totals 2,050 845 Sources: U.S. Census 1960-70; Demolition Permits 1960-78 The losses of residential homes through mergers, conversions to other uses, fires and the city's program of code enforcement were not estimated due to lack of data, moreover, the impact of these losses on the housing inventory was not as great as the withdrawals because of project developments. 16 New Construction The River Island Study Area shared in the apartment building boom during the 1960 to 1970 decade. Lansing Towers and Ferris Towers, high-rise apartment buildings with over 100 units each, were constructed during this period. Together with other garden apartments, an estimated 853 mufti -family units were added to the housing inventory. Between 1970 and June, 1978, new construction in the area dropped considerably to a total addition of only 201 housing units. This includes Oliver Towers, a 101 unit high-rise elderly housing, and an 18 unit apartment building on Chestnut Street. Conversions A large number of conversions from single to multi -family units have occurred in the River Island Study Area during the 1960-1978 period. The majority of these conversions were located between the 1-496 freeway and Willow Street, east of Logan Street. These were the areas of older, large homes which were easily converted to two or more apartment units. Most of these conversions are evidenced by the number of mail boxes and exterior staircases on single family type structures. Exact data on the number it conversions is not available. Numerous residential structures had also been withdrawn from the housing stock because of conversions to professional and governmental offices, parking spaces and other uses. Types of Structures The study area has a predominance of single family homes. However, the numberof single family units has decreased by almost 1,700 units since 1960. The majority of the housing removals in this area was single family types, while very few new replacements have occurred. Between 1960 and 1970, over 1,000 single family units or one -sixth were withdrawn from the housing stock. During the same period, the city gained a total of 5,650 single family units, an increase of about 21 percent. The number of two to four housing unit types in the area decreased during the same decade. There were significant increases in the five and over multi -family types, a gain of 732 housing units between 1960 and 1970 in the study area. Estimates for the 1970 to June, 1978 period showed further losses in the one to four housing unit types of over 1,500 and a gain of nearly 500 units in the five and over housing type units. Table X shows the trends that have occurred by types of structure in4he River Island area and the city. Tenure In 1940, 532 percent of the housing units in the River Island area were renter occupied. Between 1940 and 1960 the number of owner occupied units increased by 1,650 to 56.8 percent while the renter occupied units decreased by 152 units to 44.2 percent. From 1960 to 1978 the area lost over 2,600 owner occupied units because of the project activities enumerated earlier in this report. In view of these losses, a reversal trend to renter occupancy occured in 1970 with renter constituting 52.3 percent of the total occupied housing units. Estimates forJune,1978 indicate a continued shift to renter occupancy in the study area as shown in Table XI. The rental market is currently a dominating factor in the River Island Study Area. It is expected that rental occupancy will continue to dominate the study area in the years to come because of the lack of buildable residential land, and increasing land and building costs, and the removal of large number of single family (owner type) units. In comparison, the owner housing market still predominates in the city although trends indicate that the rental market is becoming a significant sector in the city as a whole. TABLE X TRENDS BY TYPE OF STRUCTURE RIVER ISLAND STUDY AREA AND CITY OF LANSING 1960, 1970 AND 1978 River Island Housina Units Change Est. June Change Types 1960 1970 1960-70 1978 1970-78 Single Family 6,400 56.9 5,233 52.8 -1.167 -18.2 4,708 59.6 -525 -10.0 Two Family 2,130 18.9 - 1,686 17.0 - 444 , -20.8 1,266 16.0 -420 -24.9 Three to Four Family 1,545 13.8 1,278 12.9 - 267 -17.3 659 8.4 -619 -51.6 Five and Over 1,167 10.4 1,718 17.3 + 551 +47.2 1,243 15.7 -475 -27.6 Mixed Com. n.a. n.a. 27 0.3 n.a. TOTAL 11,242 100.0 9,915 100.0 -1,327 -11.8 7,903 100.0 -2,012 -20.3 Source: 1978 Exterior Survey of Housing City of Lansing Housing Units Types Single Family Two Family Three to Four Family Five and Over TOTAL 1960 27,028 76.2 4,076 11.5 2,625 7.4 1,738 4.9 35.467 100.0 1970 # % 32,679 72.2 4.270 9.4 2,552 5.6 5,768 12.8 45,269 100.0 Sources: U.S. Census Gladstone Associates, Housing Market Study 1978 Lansing Planning Department Estimates Change 1960-70 +5,650 +20.9 + 194 + 4.2 - 73 - 2.8 +4.030 +231.9 +9,802 +27.6 Table XI Tenure Type Distribution 1940 to 1978 River Island Study Area Est. June' 1978 33,253 64.1 4,293 8.2 14,319 27.7 14,319 27.7 51.865 100.0 Change 1970-78 +574 +17.5 + 23 + 0.5 +5,999 +72.1 +5,999 +72.1 +6,596 +14.6 Total Owner Renter Year Housing Units Number Percent Number Percent 1940 9,420 4,217 46.8 4,799 53.2 1950 10,579 5,669 54.5 4,742 45.5 1960 11,242 5,875 56.8 4,647 44.2 1970 9,915 4,343 47.7 4,764 52.3 1978' 7,903 3,266 44.6 4.049 55.4 Source: U.S. Census 1940-1970 'Lansing Planning Department Estimates, June, 1978 17 Age of Housing The River Island area contained about one-third of the city's oldest housing stock (built before 1939) in 1970. In contrast, the study area contains only a 0.8 percent share of the city's newer housing stock built within the previous 10 years according to the 1970 U.S. Census. In 1970 more than 70 percent of the housing stock in the area was over 30 years old, while only 8.5 percent were 10 years or less in age. A large number of older units (2,635) built before 1939 were withdrawn from the housing inventory between 1960 and 1970. Building permits in the River Island area from 1970 to June, 1978 listed only 19 single family units (and 182 multi -family units) for new construction. Table XII shows the age of housing in 1970 for the area and the city. Table XII Age of Housing River Island and City of Lansing 1970 River Island City of Lansing Number of Percent of Number of Percent of Year Built Housing Units Total Housing Units Total 1969-70 82 0.8 1,682 3.7 1960-68 763 7.7 8.393 18.6 1950-59 ' 858 8.6 7,934 17.5 1940-49 1,221 12.3 6,229 13.7 1939 or earlier 6,991 70.6 21,031 46.5 Total 9,915 100.0 45,269 100.0 Source: U.S. Census, 1970 18 Conditions of Housing More than half of the River Island Study Area's housing stock was deteriorating while over one-fourth was substandard based on an exterior survey of housing conditions prepared in 1968. Since then a large number of older, deteriorating and substandard housing units have been removed from the inventory by the highway, urban renewal, private and governmental expansion programs and the city's code enforcement activities. Through the city's regular inspections of apartment housing, a large number of multi -family units of three or more have been brought up to codes and certified safe for occupancy. A housing survey was undertaken (January, 1978) by the Planning Department to determine the exterior condition of housing. The information gathered in that survey is used as a statement of housing quality. The housing was rated numerically on structural as well as cosmetic elements. The structural elements carried a higher weight (i.e. more points were given for a cracked foundation than for cracked siding). Depending on the number of points the houses and the blocks were rated on a four step scale as follows: - Standard --Few if any defects, low cost maintenance items. - Deteriorated --Many maintenance items or a few major items which might include roof or foundation problems. Easily rehabilitated. - Substandard --A house that is rated in this category has some major difficulties, but in most cases can be rehabiliated but at a high cost - Critical --This house would be virtually uninhabitable. Many major problems with roof, foundation, walls, etc. Table XIII gives the survey indications. Table XIII Housing Conditions, 1978 River Island Study Area* Number of Percent of Rating Housing Units Total Standard 4,922 62.2% Deteriorating 2,568 Substandard 307 4.0% Critical 106 1.4% total 7,903- 100% Source: Exterior Survey of Housing Conditions, 1978 *There are differences in the methodology utilized to obtain the ratings for the 1978 study from previous studies making comparison impossible. Each system relied on different criteria and weighting standards as well as slightly different classifications. EXISTING HOUSING CONDITION MAP 5 t 1 �t, i 1 1 I Map 5 illustrates the structural conditions represented by the predominant housing condition in each quarter of the block. As shown in the map, sound housing is concentrated in the areas west of Jenison Avenue, in the area north of Shiawassee along Genesee, and in some blocks in the northwest section. Sound residential structures are scattered in the eastern half of the study area, consisting of newer multi -family structures. The overall condition of housing is generally fair or deteriorating north of Shiawassee Street with some concentration of substandard housing surrounding the Michigan School for the Blind. The areas where dilapidation is predominant lie to the south and west of the State Governmental Complex, east of Jenison Avenue, and in the residential areas south of 1-496. ❑coo :❑ ❑ 19 ❑❑❑ .� Do a F OEM ❑ ©❑❑❑ o 000�©❑❑❑❑❑❑❑ ❑❑ OEMa0�.El El D El a MR)CM0LI ®®off 19LJ o. El El , , ❑❑❑❑❑❑❑❑ o❑®�::: ❑ ❑❑❑❑❑ Doha❑❑❑❑Em ❑❑❑❑ a Si�IE COWLEx �� ❑ ❑❑ C❑❑❑❑❑❑00❑ a❑❑ goo❑❑❑❑❑❑❑o ❑❑❑❑❑❑❑❑❑ D� Wo a .. ...:.::..:..:.. .. ..::.:::::.::.:.:::: ❑❑❑❑❑❑❑❑❑o ❑0❑® OEM Eg�a Ea Ea UE E] STANDARD SUBSTANDARD DETERIORATING ® CRITICAL EXTERIOR SURVEY BY LANSING PLANNING DEPARTMENT 1978 19 Vacancies The gross vacancy rate (all vacant units) in the River Island Study Area increased from 6.4 percent in 1960 to 8.1 percent in 1970. In comparison, the city of Lansing had gross vacancy rates of 5.4 percent in 1960 and 5.8 percent in 1970. A gross vacancy rate of 5.0 percent in an area dominated by rental housing is considered normal and desirable as it permits a wide choice of units for renters. (Urban Housing Market Analysis, HUD, Lippold) I n 1960 the study area had a renter occupancy of 43.6 percent and a gross vacancy rate of 6.4 percent indicating that older owner type housing units in the area were going vacant. By 1970, rental tenure (53.4 percent) dominated the area with an abnormally high vacancy rate of 8.1 percent. This large number of vacancies (715 renter type and 93 owner type units) was attributed to housing which was in the process of acquisition at the timethe census was taken, a higher turnover ratio in the area, a slow rate of absorption of new rental apartments, and those that were withheld from the market because of deterioration or other reasons (225). The gross rental vacancy rate was 13 percent in 1970 compared to the city-wide rental vacancy rate of 12.6 percent. Currently, the area's gross vacancy rate is estimated to be 7.4 percent. While the newer garden apartments and high-rise buildings experienced high vacancy rates in early 1975 according to several apartment managers in the area, this rate had declined to about three to four percent by September, 1975 (State Journal, March, 1976). Currently, Lansing Towers and Ferris Park Towers apartment buildings and some garden apartments have long waiting lists of prospective tenants. In view of the lack of data for obtaining net effective ratios, only the gross vacancies were considered in this analysis. Table XIV Vacancy Data River Island and City of Lansing River Island City of Lansing Total Housing Gross Total Housing Gross Housing Units Vacancy Housing Units Vacancy Year Units Vacant Rate Units Vacant Rate 1940 9,420 404 4.2 23,269 788 3.4 1950 10,579 168 1.5 28,887 415 1.4 1960 11,242 742 6.6 35,468 1,910 5.4 1970 9,915 808 8.1 45,269 2,634 5.8 1978' 7,903 588 7.4 51,865'• 2.750 5.3 Source: U.S. Census 'Lansing Planning Department Estimates, June, 1978 **Gladstone Associates, Lansing Housing Market Analysis, 1978 Housing Values Map 6 shows the average value of owner occupied units as reported in the U.S. Census of 1970. Value of housing units is the respondent's estimate of how much the property would sell for, if it were for sale. The blocks with higher average values of $20,000 or more were located in the southwest section of the study area, south of Saginaw and north of the freeway. The blocks with average values of housing units below $15,000 were generally found east of Jenison and south of Shiawassee and in most of the area north of Saginaw Street. 20 A comparison between the housing values and conditions indicated that the higher value homes were located generally in areas of standard housing conditions while deteriorating and substandard conditions occurred in areas of lower average valued homes. Housing values are directly related to household income. The higher value homes are generally occupied by higher income households that can afford the higher costs of maintenance and upkeep. AVERAGE VALUE OF OWNER OCCUPIED HOUSING UNITS BY CENSUS TRACT 1970 0 $10-15 El $26-30 AVERAGE VALUES IN THOUSANDS M9 $16-20 ■ OVER 30 L A Residential Property Sales, 1975 There were 290 residential sales in the study area in 1975 (recorded by neighborhoods, in the Assessor's office) with average assessed values of homes ranging from a low of $5,100 to a high value of $12,690. Average sales prices by neighborhood varied from $8,333 to $22,837. The sales ratio (assessed value to sales price) in the area ranged from 37.13 in the areas south of the freeway to 74.13 south of the Central Business District. Because of the lack of further information on the conditions of housing that was sold, and the circumstances leading to the transactions, a definite relationship between sale prices to assessed value could not be determined for the River Island area. Map 7 indicates the number and average sales ratio by Assessor's neighborhood districts that occurred in 1975. uat] 119 SALESI 11218 � „A sab15 1 S.52a 51.,2'A • NA (aSKE51 (1]SALE51 ]2Aoo . No, f1/950 R SAlE51 VAN N]9 (IS SALES( fIAS. - "M slaw 01 SALESI f5,�00 . ]91] (] SALES$ $ISO -.ea SIa.90 (22 SALES) MAP 7 TOTAL NUMBER OF SALES - 290 M290 . 51. SIOAaS (10 SALES( az.en 11 sl.2 t]. (]9 WE5) OAKLAND I�_� ou- SAOINAW f20.91] (125A1E51 < m S < %nW N� SHIAWASSEE U (]]SALEsI IA LE se>ro. ..a.ts aleA9a TTAWA Ita SAlE51 O ALLEGAN 00k WASHT saeoo °� .7113 se2so ❑ ❑ f10]W -69], DSALE$1 �E51 K L a sloaso -s1n szota9 1]SALESI < Y sT. wsevH 3 ® ® ® 1�498 IN F—] MA 1975 SALES RATIO (ASSESSED VALUE/SALES PRICE) SOURCE: ASSESSOR'S RECORDS 1 21 ECONOMIC DEVELOPMENT PROFILE In this profile we will make a simple appraisal of the important factors that contribute to the economy of the River Island Area. The Michigan Employment Security Commission in 1976 appraised the economic situation in Lansing as follows: "State government, transportation equipment, retail trade, and the service industry all play major roles in the economy of the Lansing -East Lansing SMSA. This diversification has in the past, provided for the steady economic growth of the State's fourth largest labor market area and has helped to prevent the local area from experiencing the higher rates of joblessness.." As of November,1977, the unemployment rate was 5.2 percent as compared with 9.4 percent in November, 1975. Much of this recovery has to do with the booming sales of Oldsmobiles. The Oldsmobile plant and its satelite industries are now at full production. There are 42,488 jobs in River Island, according to the Michigan Employment Security Commission in 1977. This represents 74.1 percent of the total employment of the city of Lansing. Almost 75 percent of the jobs in the city are concentrated on less than 12 percent of the total land area. River Island is truly the center of economic activity in the city of Lansing. The River Island not only contains an Oldsmobile plant but also Fisher Body, a large portion of State offices, as well as many other smaller commercial, office and industrial concerns. These centers of activity or "nodes" as they are referred to in this profile are geographically scattered throughout the River Island Area. They are generally homogenous is terms of single purpose or land use activity; notable exceptions include the Central Business Section and the North Lansing area. Table XV: Activity Nodes by Type of Activity Manufacturing/ Commercial/ Government Node Warehousing Office A. Oldsmobile X B. Fisher Body X C. Central Business District/ Central Area X X X D. Saginaw/Logan X X E. Willow/Grand X F. Saginaw Point X G. Sunset Industrial X H. Industrial Welding X I. North Lansing X X X J. Consumers Power X X K. Spot Areas X X 'Source: Michigan Employment Security Commission, 1978 Commercial/Office (Non -Manufacturing) This category, referred to by the Michigan Employment Security Commission as non -manufacturing, includes: 1. Retail trade 2. Service and miscellaneous manufacturing 3. Wholesale trade 4. Finance, real estate and insurance 5. Transportation, communication and utilities 6. Construction According to the Michigan Employment Security Commission figures, this category gained 12,800 jobs or 22.5% between 1970 and 1975. This represents a larger increase than either manufacturing or government. The following are commercial/office nodes in the River Island Area. Table XVI: Commercial/Office (Non -Manufacturing) Node Non -Manufacturing Establishments Central Business District 277 West Saginaw Area 25 Willow/Grand 8 Saginaw Point 10 North Lansing 50" Spot Areas 62 Total 432 Source: City Assessor's Records In three of the areas, major public improvements activities are planned. The Central Business District will have the South Washington Mall extended south, the West Saginaw area will receive parking lot design treatment, and the North Lansing commercial area will get a facade design treatment which will preserve the historical integrity of the buildings in the area. By far the largest node in the area is the Central Business District which generally is bounded by Capitol Avenue, Shiawassee Street, the Grand River and Lenawee Street. It should be noted here that the CBD is the only significant non -manufacturing employment center. For this reason only the CBD is considered in the following detail. The Central Business District has been the subject of detailed study. The area contains all elements of the economic mix including some manufacturing. It is the center of government for the city which is a considerable feature since Lansing is the State capital. 'The Michigan Employment Security Commission refers to this category as non - manufacturing Approximately 112 commercial establishments are presently operating in the Central Business District. This number is up slightly from 1974 (where there were 108 such establishments ) primarily due to the addition of several new restaurants and a new gift shop. Commercial and retail businesses represent approximately 40 percent of the non -manufacturing establishments (277) in the Central Business District. The most recent statistics regarding employment in the Central Business district were gathered in 1974.' That report indicates that retail establishments employ 1,800 persons or approximately 9 percent of the CBD work force. Table XVII: 1974 CBD Employment Number % of Employees (1974) % of Change (from 1964) Manufacturing 431 2% +31% Retail 1.800 9% -46% Government 12,913 64% +108% Other 4,971 25% -32% Totals 20,115 100% Net + 8% As can be seen from Table XVII, this represents a 46 percent reduction in retail employees in the ten year period between 1964 and 1974. This primarily resulted from a decline in the number of retail stores from 173 to 108 during the same period. Primarily, the downtown Urban Renewal Program accounted for this decline in retail establishments. It should also be noted that although the, number of retail employees declined, overall employment in the CBD rose 18 percent from 1964 to 1974. Although the number of retail stores and jobs have declined in the CBD, sales volume has increased." According to the Lansing CBD Situation Analysis,1976: Retail stores in the Central Business District have consistantly shown higher sales volumes on the average than the stores located outside the Central Business District. The only exception is the 1972 figure for the city which shows the average sales volumes throughout the entire city are about equal whether or not they are in the Central Business District. 'Lansing CBD Situation Analysis, September, 1976 "Ibid, pg. 12 "This is an approximate figure because of high turnover in this area 22 1 1 According to the recent South Washington Square and Environs Study, by Warren Holmes, Kenneth Black Company (December, 1977), which encompassed the "Core Area" of the CBD (or the eight blocks adjacent to Washington Avenue from Michigan Avenue to Lenawee Street), retail uses occupy 1,134,133 square feet of space or 46 percent of the Core Area. From Table XVIII below which indicates the amount, type and vacancy rate of CBD uses, it should be noted that retail spaces have the highest vacancy rate. However, this rate includes basements, as well as second and third floors which represent a substantial portion of the vacant space used in calculating the vacancy rates. Of the eight blocks studied, only three had any vacant space on the ground floor. Table XVIII Tabulation of the Percentage of Total Gross Square Footages in the Core Area by Type and Occupancy Retail % Occupied % Vacant Total Retail Use 79% 21 % 100% Office Use 97% 3% 100% Special Purpose Use 94% 6% 100% North Lansing Area This was the original business district of Lansing. Many of the buildings are historically significant. This area is located along East Grand River Avenue and Turner street between North Cedar Street and North Washington Avenue. A large number of buildings are vacant. The area is presently the subject of a plan that will provide for facade restoration of historically significant buildings and develop bike paths and pedestrian walkways in conjunction with Riverfront Park development. This district consists primarily of neighborhood commercial businesses such as second hand stores, bars, drug store, novelty store and various local and service stores. Also there are several community -wide businesses like the furniture sales, kitchen shop, and industrial type contracting, services. West Saginaw Area This area is located along both sides of Saginaw Street between Logan and Wisconsin Streets. It consists of retail and service establishments. Although the market area for this commercial area is larger, it is still primarily utilized by persons living in the surrounding neighborhood. Willow/Grand Area This area is located at willow and North Grand River. This is a commercial plaza that has experienced rapid turn over in tenants. One gas station is vacant at the northeast corner of the intersection. Another station at this corner was converted in 1978 for office use. Presently, a medium size grocery store is the anchor of the area. Three other smaller commercial establishments are located in this center. -South Washington Square and Environs Study, Warren Holmes, Kenneth Black 1 Company, December, 1977 j 23 Saginaw Point This area is located along the area west of St. Lawrence Hospital. Commercial development here is largely strip development. The types of businesses are those that could attract passing motorists as well as provide for the needs of the local residents. Spot Areas There are many neighborhood commercial establishments scattered throughout the River Island Area. This includes clusters of, as well as single, businesses. Included are offices, gas stations, small grocery stores, taverns and other retail outlets. Government Government employment accounts for 13,500 jobs according to 1974 figures. In 10 years government employment has risen 108 percent. If the State proposal to construct two new office buildings in the CBD is approved, estimates are that approximately 5,000 additional State jobs would be located in the Capitol Complex. Some government employees are scattered to other locations in River Island but not in any significant numbers. Manufacturing/ Warehousing Over one quarter of the jobs in the Lansing -East Lansing area are provided in the area of manufacturing/warehousing. Much of this activity is in the motor vehicle equipment category which contains over 60 percent of all manufacturing/warehousing jobs. The River Island Area experienced a decrease in the number of manufacturing firms between 1972 and 1976 but maintained its employment levels. There were 34 manufacturing firms counted in the Directory of Michigan Manufacturers in 1972. That same publication reported only 20 manufacturing firms, or a 40 percent loss, as of 1976. The number of persons employed, however, went up by 439 or2.5 percent from 17,680 in 1972 to 18,119 in 1976. Of the 18,119 manufacturing jobs provided in the River Island Area 17,100 or 95.3 percent are provided by two firms; Oldsmobile and Fisher Body. Approximately 18 other firms provide the other 848 jobs. The distribution of manufacturing employment is shown below: Table XIX: Manufacturing Employment: 1976 Oldsmobile 12,500 Fisher Body 4,600 CBD/Central District 431 Sunset Industrial 230 Industrial Welding 187 North Lansing 71 Total 18,119 Consumers Power is not what normally would be considered a part of industry. However, there is a large amount of trucking and storage that is associated with that node. Consumers Power employs 494 persons at that location. At least three of these nodes are now in the process of expanding. Oldsmobile will, upon opening its new section for 1979 model production, expects to employ approximately 600 additional persons. Fisher Body will increase its work force by one third or approximately 1,500 newjobs. In addition, Industrial Welding has begun acquiring property to expand their operation. The River Island area has a definite lack of developable industrial zoned land. There is only one area in the northwest corner which is vacant and zoned industrial. This area is one of the oldest parts of the city, and major changes in land use and zoning would have to occur to be attractive to new industry. 24 COMMUNITY FACILITIES PROFILE This section includes those institutional facilities which are available to the public and provide an important component or focal point in many neighborhoods. The facilities included here are: a. Schools (public and private) b. Parks/recreation centers c. Hospitals d. Churches e. Senior citizen facilities Schools There are ten (10) public and four (4) private school buildings in the River Island Area. Several other buildings used in connection with educational programs are also located there and are under public ownership and operation (see Map 8). All of the public facilities, except Lansing Community College and the School for the Blind, are owned and operated by the Lansing School District. The River Island Area contains the newest and some of the oldest elementary schools in the entire city. The average age of the elementary schools in River Island is 39 years and the average size of each site is 3.26 acres. A 1978 "Study of Declining Enrollment" in the Lansing School District suggested that the Walnut Street School be closed in 1979 as an educational facility. Main Street School is being examined by the school district for possible closing within the next two years. Both of these schools have a site size below the River Island average (2.08 average at Walnut and-2.38 average at Main). There are no junior high schools in River Island; most area children attend Gardner Junior High School and Otto Junior High School. Sexton Senior High School serves 1,542 students and is located on the western perimeter of the study area. According to a recent report published by the Lansing School District called Data on School District Facilities,1976, Sexton, built in 1942, also needs modernization of its building and grounds to alleviate certain deficiencies. The other facilities owned by the Lansing School District include: 1) the Bassett units which house a junior high special education program, 2) the Academic Interest Center (part of continuing education), 3) the Partington Administration Building, and 4) the Central Public Library. The Continuing Education facilities and the Partington Building are part of the same complex which was originally West Junior High School and Kalamazoo Elementary School. This complex is located in the southwest portion of the downtown area. The public library owned and operated by the Lansing School District is located on the corner of Capitol and Kalamazoo Streets. Built in 1963, it has 84,000 square feet and an inventory of approximately 125,000 books. Lansing Community College is one public school institution in River Island not owned by the Lansing School District. Located in the northern portion of the downtown area, LCC, established in 1957, has continued to expand its enrollment and curriculum. In recent years, the enrollment has increased at a rate of approximately 25 percent a year with a present enrollment of over 19,000 students. I I I To accommodate the increased number of students and expanded curriculum, Lansing Community College has constructed new and rehabilitated older buildings to provide the additional space necessary. Indications from the college are that if additional land were available they would be interested in further physical expansion. The four private schools are Holy Cross Catholic School (1-6 grades) which has approximately 185 students, the Seventh Day Adventist School with approximately 50 students, Lansing Business Institute with approximately 300 students, and Cooley Law School with approximately 1,000 students. PUBLIC AND PRIVATE 1. RIDDLE EL. SCHOOL 2. GENESEE EL. SCHOOL 3. VERLINDEN EL. SCHOOL 4. WILLOW EL. SCHOOL 5. BASSETf UNITS 6. WALNUT EL. SCHOOL 7. MAIN ST. EL. SCHOOL 8. SEXTON HIGH SCHOOL 9. LANSING COMMUNITY COLLEGE 10. ACADEMIC INTEREST CENTER & PARTINGTON BLDG. 11. PUBLIC LIBRARY 12. LANSING SEVENTH DAY ADVENTISTS EL. SCHOOL 13. HOLY CROSS EL. SCHOOL 14. LANSING BUSINESS INSTITUTE 15. COOLEY LAW SCHOOL 16. MICHIGAN SCHOOL FOR THE BLIND 25 SCHOOLS PARKS AND RECREATION CENTERS IN RIVER ISLAND Parks The parks in the River Island area are all owned and/or operated by the city of Lansing Parks and Recreation Department. There are 23 city parks in River Island with a combined area of approximately 117 acres including the Capitol Complex, Comstock Park, Ferris Park, Poxson II and the West Side Community Center which are leased and cannot necessarily be counted as parkland in the future. The parks available at present are primarily classified as neighborhood playgrounds, city-wide, or specific use parks. Plans for future development of parkland in the North Lansing area of River island may create a regional demand and use there. According to the most accurate estimates of the Parks Department, most parks in River Island are frequently and heavily utilized by area residents. Residents also use the river for fishing and swimming. 1. GRAND RIVER PARK 2. COOLEY GARDENS 3. REUTTER PARK 4. KINGSLEY CENTER PARK 5. RIVERFRONT PARK 6. ST. JOSEPH PARK 7. RIVER STREET PARK 8. KALAMAZOO PLAZA 9. PDXON II PARK 10. WENTWORTH PARK 11. WASHINGTON MALL 12. FERRIS PARK 13. DURANT PARK 14. GENESEE CENTER 15. OSBORNE PARK 16. HULL COURT 17. COMSTOCK PARK 18. EDMORE PARK 19. BASSETT PARK 20. DUNNEBACKE PARK 21. WESTSIDE PARK 22. BUCHARD PARK & RIVERWALK 23. DODGE PARK 26 Community Centers Three community centers are presently located in River Island. Two are on Butler Street, the West Side Drop -In Center and the Genesee Community Center. The third is the new Kingsley Center located at the southern end of the Riddle School/Kingsley Place complex west of Logan between Kalamazoo and Washtenaw (see Map 9). A wide range of programs and activities for all age groups are available at these facilities. Most of the programs are offered by the Parks and Recreation Department. Hospitals The only inpatient medical care facility in River Island is St. Lawrence Hospital located just west of Logan Street between Oakland and Saginaw. The hospital presently offers inpatient care for.. 252 licensed beds in medicine, surgery, pediatrics and obstetrics 39 licensed beds for psychiatric care 20 licensed beds for substance abuse treatment (alcohol) This represents a total of 306 licensed beds served by 688 full time and 272 parttime staff members. In addition to the inpatient services available, the hospital also offers outpatient clinics and emergency room services. From June, 1974 to June, 1975 83.097 persons utilized the emergency and outpatient facilities. According to hospital officials, the number of persons using the outpatient services has steadily increased in recent years. This trend is expected to continue in the future, although at a somewhat slower rate. To accommodate the increased outpatient and emergency room utilization and because of structural deficiencies in the present facility, a new hospital is being constructed adjacent (west) to the existing building. The only other clinical facility available to the public at large is Community Health Services, Inc., operated by Ingham County Health Department. It is located in the Medical Center West Building at the corner of Logan and Saginaw. The last form of medical care open to the public is the private physician. The availability of this care many times is dependent upon the financial capability or insurance coverage of the patient. 27 Churches The River Island Area contains 26 organized churches of various denominations (see Map 10), many of which are concentrated in the downtown area. Although these facilities do not generate significant amounts of traffic on weekdays, many do have other activities and functions during the week (i.e. day care centers) which are important to the community. It should be noted that this proportionately large number of churches does represent an extensive portion of the non-taxable land in River Island. CHURCHES Senior Citizen Facilities At present, few facilities exist for the exclusive use of seniors. One senior citizen center on Ottawa Street provides outreach and transportation services to seniors in the Lansing area. The new Senior Center, constructed in 1978, at the Lansing Civic Center provides centralized indoor recreation, meetings, meals, and counseling services. There is also a rooming house for women over 50 (single or widowed) on Willow Street, but this has a very small impact upon the total need for senior citizen housing in Lansing. Another senior housing facility located in River Island is Oliver Towers at the corner of Capitol and Ionia. This facility contains approximately 100 units and is entirely for senior citizens. PUBLIC SERVICES PROFILE This section contains a narrative description and appropriate maps related to the utilities and public services in the River Island Area. A total of seven utilities are included: gas, electric, water, storm sewers, sanitary sewers, telephones, and street lighting. Sections on police and fire protection are also included. Information about utilities were furnished by provider agencies including the city of Lansing, Consumers Power Company and Michigan Bell Telephone. These maps document the utility transmission lines that are both overhead and underground. A number of utilities are scheduled for improvements of various kinds and this information has been included when available. Storm Sewers and Sanitary Sewers Most of the storm sewers in the study area are combined with sanitary sewers. The exceptions to this are the six block urban renewal area, the Kingsley Court -Riddle School area and part of the State Complex (see Map 11). The Urban Renewal Area sewers have been installed for six years and the Kingsley Area is in the process of being completed. The State Complex has been done for 8 years. It should be understood, however, that these separated sewers empty into combined type lines that lead to the sewage treatment plant. Sewers serving the study area carry effluents to one of three large (60" or over) intercepter lines. These lines run (1) north winding through Lansing Township to the treatment plan; (2) north along Logan Street and then west to the treatment plant; and (3) north along the Grand River and then west to the treatment plant. lZ SEPARATED SEWER AREAS SEPARATED STORM SEWER Although these sewers are among the oldest in the city, at the present time the capacity of these sewers is compatible with land uses in the area. However, during periods of heavy rain, the same sewers carry storm water along with effluents. If the amount of storm water exceeds the sewers' capacity, then both storm water and sanitary waste is passed into the Grand River. Also, there are sporatic but continuing complaints of sewers being blocked by debris and backing up. In addition, although cases are rare, effluents sometimes will back up into basements through waste drains. 28 One solution to such problems is the separation of storm and sanitary sewers. However, due to the great cost, there are no overall plans to upgrade the sewers in the study area. The Public Service Department, in an effort to alleviate the problems, has adopted a policy of separating sewers for any new construction, and has a study underway to determine other feasible methods of handling excess storm water without separating sewers. Water Water is supplied to the study area by the Board of Water and Light. A total of 30 wells in the study area pump waterfrom the Saginaw formation located 100-500 feet beneath the ground surface. The water is then piped to the Lansing Water Treatment Plant located on South Cedar Street. The attached Map 12 indicates the area's well sites, transmission lines and water mains. Water is pumped from the treatment plant through transmission lines to most parts of the city. Map 12 indicates 12" or larger main transmission pipes in the study area. Other smaller water lines supply individual residences, buildings and fire hydrants. There are several streets within the study area that are underserved. The Board of Water and Light has a 10 year Capital Improvements Program to alleviate these problem areas. Some of these are without mains and others have undersized mains. • WtLL SI I US — TRANSMISSION LINES & MAINS OVER 12 IN. They are as follows: Undersized Mains 1. Verlinden Street - from Saginaw to Willow 2. William Street - from Clare to Logan Require Mains 1. Clare Street - from Olds to Michigan 2. Michigan Avenue - from Clare Street to 560' east The correction of these problems will increase the capability of water distribution. Present plans call for the construction of three water main loops. Loops will be installed on Clare Street between Michigan and St. Joseph, on Michigan Avenue between Clare and Verlinden, and on Cleo between Saginaw and Willow. Telephone Telephone service in the study area is provided by Michigan Bell Telephone. Service wires are, for the most part, overhead. The one exception to this is in the urban renewal area and some services to the Capitol Complex in the downtown area. Overhead lines generally run along front property lines. In addition, most lines are not directly over road surfaces but rather to one side. Michigan Bell has no immediate plans to improve service capacity anywhere in the study area. Rather, growth and development in the area will dictate where the future expansion of service will go. Any foreseeable development can most probably be accommodated by present central office equipment. Gas Consumers Power Company supplies gas to the study area. Main lines vary in size from 2" to 12". These mains run down nearly every street so that a gas service is available anywhere in the study area. Consumers Power replaces mains as _ necessary. There are no large scale plans to replace mains in the study area. In addition, the service now available for residential customers is adequate for the foreseeable Iulure, unless large scale development occurs at some unexpected location. Future availability of gas service for non-residential customers is much less certain. This could potentially be a problem in the CBD. Electric Service Electric service is provided throughout the study area by the Board of Water and Light. This service is provided by 111 main overhead distributer circuit feeders,121 overhead service lines and 131 underground conduits. Main overhead distributor circuit feeders are major lines that supply the others. They are supported by large wooden poles or metal towers. These lines are shown on Map 13. w MAIN OVERHEAD DISTRIBUTER CIRCUIT FEEDERS Overhead service lines are the most common type of electric line in the area. They are supported by large wooden poles or metal towers. These lines are shown on Map 14. OVERHEAD SERVICE LINES Underground Conduits are shown on Map 15. These conduits generally contain more than one electric cable. They are constructed in such a way that, if work has to be done on them, digging them up will not be necessary. UNDERGROUND ELECTRIC CONDUITS Street Lighting Street lighting is the responsibility of the Board of Water and Light. They install street lights on all city streets. Map 16 shows incandecent and mercury vapor street lighting in the area. Please note that, at present, there are not any series incandecent (non-residential) or high pressure sodium units in the area. The brightness of the different lights is measured in lumens. Residential incandecent lights radiate 2,500 lumens. Other incandecent lights radiate 6,600 lumens, while mercury vapor lights radiate from 6,600 up to 55,000 lumens. The Board of Water and Light's adopted Street Lighting Policy sets forth lighting standards for ;(1) illumination in average maintained foot candles (lumens), (2) type of illumination; mercury vapor or other high efficiency light sources, (3) mounting height; 11' to 27' or higher, and (4) mounting poles; existing wood poles where available. These standards are administered according to street classification (major, collector, local) and area classifications (commercial, intermediate, residential). On the basis of this policy, the Board of Water and Light attempts to maintain lighting standards, "sufficient to meet the needs of their customers". Efficiency here is related to both energy used by light sources and the installation of poles for these light sources. The mercury vapor type of light source is more efficient in use of energy. The installation of mast arm mountings on existing poles is much less costly than installing new poles. 30 The Board also considers traffic safety and crime prevention as an important part of street light upgrading. The brighter mercury vapor lighting sources are believed to reduce crime and improve traffic safety. As money becomes available, the Board has proposed to replace all of the older lighting systems in the city. Many of these systems are found in the River Island Area. The older systems will be replaced as soon as possible. They will, most likely, be replaced with mercury vapor types according to street classification. Map 16 indicates recently replaced and newly proposed lights. o NEW LIGHTING THROUGH JUNE, 1978 �;J 1 1 1 1 1 Steam Presently, steam service is provided to 83 blocks in the downtown area. This service is provided by the Board of Water and Light. It will not be extended unless present production facilities (Ottawa Street Power Plant) are expanded. Map 17 shows the 83 blocks served by steam. Many buildings in this area are provided with steam for heat. A study is presently underway to determine the future methods for producing electricity which will decide any further steam service expansion. STEAM LINES Maintenance Street sweeping, sewer cleaning, garbage collection and snow removal are all services provided by the Public Service Department. Except for garbage collection, they are provided without additional charge to the citizens of Lansing. Garbage is collected, by the city, only if bagged in special orange bags. These bags are provided at a cost of 250 per bag. Otherwise, garbage collection is provided by private vendors. 31 Fire Department The Lansing Fire Department serves the entire River Island Area with four of its ten fire stations. Approximately 268 persons are employed by the Fire Department. The most significant item under discussion which affects River Island is the possible closing of one of the River Island stations. The closing of fire station No.3 has been proposed with the relocation of station No. 7 just north of 1-496 near Hillsdale and Logan Streets. A 1978 study update on this action substantiated the benefit to the city to combine the service area and operations into a new three company station. The suggested location is the Logan/Birch Triangle. (See Map 18) FIRE STATIONS AND SERVICE DISTRICTS Police Map No. 19 indicates the Police Reporting Districts and the main police building. The need for additional space has prompted a proposal to construct new police facilities. A study is presently underway to determine future space needs and the best location for effective police operations. The major alternatives at this moment are to centralize operations (as they are now) in a single building in the downtown area close to the courts. The second would be to centralize operations in a single building outside the CBD and the third alternative would be to decentralize operations in a series of smaller buildings scattered throughout the city. The study is investigating the criminal justice complex concept where courts, police and similar law enforcement services are co -located. No decision has yet been made. Presently there are fifteen police reporting districts in the city. River Island has some of the highest crime districts in the city, however, the city as a whole ranks very low in total crimes reported. Both the Police and Fire Departments in the city of Lansing seem to rate highly on the various scales for effectiveness in their operations. ENVIRONMENTAL PROFILE This section is intended to provide an overview of the physical environment of the River Island area. The major categories which will be discussed are: Topography Soils Vegetation Wildlife Air, water and noise pollution Topography The topography ranges from flat to gently rolling. There is very little change in elevation throughout River Island: Due to its basically level character, it is anticipated that topography would not be a major factor in any environmental considerations. Soils The area is characterized as well drained with a loamy surface layer over clay loam or sandy clay loam. In the heavily developed areas, the soil types are less distinct. This is due to the use of "fill dirt" and other materials during the construction process. These "disturbed soils" are common in highly urbanized areas. The soils in River Island in addition to being well drained, are rated from fair to poor in their bearing capacity and are subject to subsurface frost heave. These characteristics are important to the potential future construction in the area as indicators of the "buildability" of the land and what measures would have to be employed in order to mitigate most or all negative soil conditions. Vegetation The vegetation in River Island is typical of the average urban setting. Trees and other vegetation are those normally found in cities and do not constitute a major environmental concern on an individual basis. There are no large wood lots or UILDING stands of virgin timber. However, the mature shade trees that characterize older neighborhoods like those in River Island are an important element of the physical attractiveness of the area and are, therefore, valuable assets which should be retained. POLICE REPORTING DISTRICTS 32 Wildlife Again, there are no unusual species to be found in River Island. The primary wildlife populations are squirrels and rabbits and occasional pheasants in large vacant lots. These animals are common to urban, residential areas, and no substantial changes in their habitats are anticipated. Air, Water and Noise Pollution The Air Pollution Control Division of the Department of Natural Resources has indicated that Lansing's general air quality meets or exceeds the national standards. The two point source censors in River Island did not record any readings which were above the acceptable levels in 1975. A similar situation exists concerning water quality in the Grand River. Measurement of the major elements of water pollution indicate that the Grand River is relatively clean and meets the recommended standards. Noise pollution seems to be a relatively minor problem except in areas directly adjacent to the major noise pollutors. Noise readings have had only a limited utility in River Island, notably Logan Corridor. In this example noise has been shown to be a serious problem for residents primarily due to large trucks and high volumes of traffic. CIRCULATION PROFILE This section briefly describes the transportation network as it presently exists in River Island. The transportation network encompasses not only streets and highways, but also the bicycle, pedestrian and public transportation facilities located in River Island. Streets and Highways The River Island area is unique in the city because a large percentage of its streets are non-residential. This situation is a result of including the city s central area within the study boundaries. According to the Tri-County Regional Planning Commission's Street and Highway Plan, May 24, 1973, there are two major arterials and one freeway located within the River Island. These include (1) Saginaw/Oakland (one way pair), (2) Logan Street, and (3)1-496. In addition to these major arterials, there are ten minor arterials most of which are located in the Central Area. The approximately 64.37 miles' of roads in River Island can be broken down as follows: 6.50 miles (10%) are State Trunklines 26.71 miles (42%) are major streets" 31.16 miles (48%) are local streets All three of the major streets mentioned previously function not only as regional arteries, but also serve as penetrator routes to the Central Area. Transportation Data Profile The minor arterials provide the direct access routes to the central city from the regional arterials for employees, students, shoppers, and others. The access provided by these streets is necessary to the continued growth and development of the central area. The balance of the streets in River Island are local streets with the exception of several minor arterials and collector streets outside the Central Area such as Olds, Clare, Jenison, Michigan and Willow. These streets feed cars to and from local streets to the major street network. They also provide access to several major activity centers (outside the central area) including Oldsmobile and Fisher Body. 'These figures were derived from Act 51 Street Classification Map and therefore reflect their classification system. **Major streets in this context include both major and minor arterials as well as most collector streets. Unfortunately many of these collector streets in River Island are predominantly residential. They are, inmost cases, streets that are direct routes to the same major activity centers mentioned above. This routes heavy traffic and trucks through areas and on streets that were not originally intended to have more than local residential traffic on them. (See Map 20) It should be noted that the Lansing Planning Department, in conjunction with other regional and local agencies, has conducted a study to determine whether or not future traffic needs justify the reconstruction and expansion of Logan Street between Kalamazoo Street and the proposed 1-69 interchange in DeWitt Township. To date, the "Blend Alternative" through the city (to the Grand River) has been recommended" that will coincide (with some probable modifications) with the present alignment of Logan Street. These recommendations and those concerning access to and from Logan from other streets will have significant impacts upon the circulation of the neighborhoods adjacent to Logan Street. An important element in determining the adequacy of various streets is to examine the location and frequency of traffic accidents at different intersections. According to the city of Lansing Traffic Department statistics, ten of the forty worst intersections (in 1976-1977) were located in River Island (see Map 21). The intersection of Capitol and Michigan with an accident rate of 3.73' was surpassed only by the intersection of Logan and Miller where the rate was 5.3. Parking None of the major arterials in River Island allow parking at any time on either side of the street. Several of the minor arterials and collectors allow parking only on one side of the street but a majority of the streets are residential and allow parking on both sides. Most parking spaces in River Island are located in the central area of the city. The primary users of these spaces are downtown office and governmental employees, shoppers and students (Lansing Community College, Lansing Business University and Cooley Law School). 'These figures are calculated by multiplying the Average Daily Traffic (A.D.T.) at a particular intersection times 365 (days in a year) and then dividing by the total number of accidents in one year. "The blend alternative includes acquisition of both sides of Logan Street except only the east side in vicinity of Lapeer and Saginaw and only the west side at Willow. Details are found in the "Logan Corridor Joint Development Study, Environmental Impact Statement", draft, dated May, 1977, and prepared by the Lansing Planning Department. 33 VOLUMES \ NORTN < 0 W U OAKLAND L - 21 27,000 r �— 19,000 SAGINAW w 16,000 ` 20.000 22,000 w = il of _ < = JCL U) SHIAWASSEE a Z 3 $ U C¢7 IONIA CCCC o g OTTAWA C C Ccli 6,000 .0 $ gL 700 J ALLEGA_N IL U 11,800 � Q WASHT F $� C S KALA O 10J L 12.600 r cd `4' ST. JOSEPH L I Ea 31,400 F 32,000 34,000 SOURCE: 1974 AVERAGE DAILY TRAFFIC VOLUMES, TRI-COUNTY REGION, TRI-COUNTY REGIONAL PLANNING COMMISSION 34 1 i 1 1 1 1 1 1 1 1 1 1 1 IN ACCIDENT RATES MAP 21 JULY, 1977 �Qaa®= 1.67 GOOD - BELOW 1.5 MODERATE - 1.5-2.5 HIGH - OVER 2.5 THESE ARE THE INTERSECTIONS IN RIVER ISLAND WHICH ARE LISTED AMONG THE 40 WORST INTERSECTIONS IN THE CITY ACCIDENT RATE CALCULATED AS NUMBER OF ACCIDENTS PER MILLION NUMBER OF CARS THROUGH INTERSECTION 35 A distinction should be noted here concerning the types of users. One type is the long term parker, the downtown employee whose automobile is basically in storage for eight hours during the day. The second type is the short term parker whose stay is of much shorter duration (i.e student, shopper, etc.) or who may be a 'conventioneer whose car will be parked for longer periods but only for a day or two. Approximately 14,712 spaces presently exist in the central area. They can be broken down as follows: Legal curb spaces 1,171 Off-street spaces' 8,525 State Complex spaces 5,016 Most other parking lots in River Island are privately owned and are reserved for employees and/or visitors of the facility (i.e. Fisher Body, Oldsmobile, St. Lawrence Hospital, etc.). The parking capacity of the central area is basically adequate for present needs. A notable exception is at Lansing Community College. Even with the new ramp facility (918 spaces) there is still a shortage of spaces. L.C.C. officials estimate that college owned parking only satisfies one-half of the total need. If certain major improvements occur in the central area (development of a new hotel/convention complex and new state office buildings) present parking facilities would be severely strained. Public Transportation Public transportation in Lansing is steadily increasing in ridership and becoming an important mode in the circulation system of the city. Ridership figures indicate that the Capital Area Transportation Authority (CATA) served 500,000 persons in 1973; 1,700,000 in 1974; 2,730,634 in 1976; and over 3,000,000 in 1977. The major transfer and interchange point for all city bus routes is located in the River Island Area on Grand Avenue between Michigan and Ottawa Streets. From here routes spread in all directions providing service to and between most major activity centers in the Lansing area. Six routes are located primarily in the River Island area (see Map 22). As with most Lansing routes, all but one of the six are linear routes which follow primarily major streets and do not attempt to penetrate adjacent neighborhoods. Route 6 (Fisher Body) is an exception to this, as it travels through residential areas to Fisher Body, Sexton High School and other points. Along the six routes there are bus stops approximately every two blocks, one of which is sheltered (at Fisher Body). Most of these stops are located at the major activity centers and at major intersections. CATA is presently considering four new sheltered stops in the River Island area. They would be located in the proximity of: (1) St. Lawrence Hospital; (2) Michigan School for the Blind; (3) Fisher Body/Sexton High School; and (4) Capitol and West Grand River Avenues. All six of the routes in River Island have experienced substantial increases in ridership in 1976. Logan South seems one of the most successful; lt has doubled the number of buses and extended its service hours. These figures seem to indicate that the River Island Area has an established and growing bus ridership. *This figure includes ramps and surface lots, both public and private. BUS ROUTES IN THE RIVER ISLAND 36 Several factors should also be noted which restrict access to bus transportation: These include: 1. A limited Saturday schedule 2. No Sunday schedule 3. Only one city route in operation after 9 p.m. (last bus 10 p.m.) 4. No bus routes are operated in the River Island Area after 8:10 p.m. Other transportation facilities are available in River island. Lansing Senior Citizens, Inc. located on Ottawa Street in the study area, limits its service to senior citizens and then primarily for medical appointments and shopping. Capital Area Community Services (also located in the study area) provides mini -bus service for pre-school children in various Headstart and day care programs. The school district also plays an important role in transportation in River Island. This, however, only covers school children. No passenger rail or air facilities are located in River Island, but all are available within the city. Presently, a variety of public transportation services are available in River Island. However, these facilities do not provide the range of service at all of the times needed nor are they directed at all segments of the population who may need them. It would seem, however, that the utilization of public transportation is steadily rising, indicating that the present levels of services must at least be maintained and probably improved to meet demand. Non -Motorized Transportation In recent years most improvements made to city transportation facilities have focused primarily on streets and highways. However, as the price of purchasing and operating a motorized vehicle has increased, walking and bicycling have gained popularity. Bicycles The rate of increase in the popularity of bicycles is evidenced by the factthat bicycle registrations rose 179% from 1971 to 1975 in the city of Lansing. In addition, Michigan State University registrations rose 146% from 1971 to 1975. Two bicycle routes run through the River Island area, and are shown on Map 23. These routes are defined as "Class III' routes which are "routes utilizing the right-of- way of existing streets and highways along with other vehicles, and are designated as bikeways only by the use of signs," according to the Tri-County Regional Bicycle Transportation Plan. Both routes are located on residential streets away from major automobile routes and are part of the initial phase of the Lansing Bike Plan. Specifically, they are located as follows: (1) north and south along Jenison Avenue and (2) east from Jenison along Genesee Street toward the downtown. Several other bikeways are planned for the River Island area. Most of these will also be Class III bikeways, located along minor streets and designated by signs only. One Class I bikepath is proposed along Washington Avenue between Kalamazoo Street and Oakland Avenue. A continuous system of hiking/biking paths along both banks of the Grand River is also proposed. The initial portion has already been installed along the east bank of the Grand River adjacent to Riverfront Park. It should also be noted that on February 12, 1973, Lansing City Council passed a resolution supporting Section 10.K of Act 51, P.A. 1951, as amended, which reads: "Whenever major arterials are constructed, reconstructed, or relocated, provisions for bicycles should be made." Sidewalk and curb ramps assist in more free movement of handicapped persons. BICYCLE ROUTES IN RIVER ISLAND . EXISTING -- UNDER STUDY ' ....•»•••- PROPOSED ••••• UNDER CONSTRUCTION 1 37 Pedestrians It is necessary, particularly in residential areas to identify and promote the pedestrian access routes to schools, parks, neighborhood commercial facilities and other destinations. Probably the most frequent pedestrians are children and downtown office workers at noontime. There are 6,246 school age children in River Island (1976) and 20,115 employees in the Central Business District of the city in 1974. Sidewalks which provide the major paths for many pedestrians, already exist along most streets in River Island. To assist pedestrians in crossing busy streets, two pedestrian bridges are presently located in the study area. Both are near elementary schools where children must cross major streets to arrive at their destination (Riddle and Willow Street Schools). Plans proposed for the Neighborhood Development Area (NDA) No. 1 attempt to accommodate pedestrians by recognizing and encouraging paths which cut through the internal portions of blocks. These paths and sidewalks are then used to form a system by which the pedestrian should be able to safely arrive at his destination. Rail and Air Facilities The rail facilities in River Island are devoted specifically to freight operations and serve primarily industrial concerns (i.e. Oldsmobile, Fisher Body, Industrial Welding). Oldsmobile representatives have indicated that without rail they would be unable to operate feasibly. The Capital City Airport is located north of the River Island Area. However, much airport traffic either originates or is destined for the central area of the city and utilizes Logan Street (in the study area) as a major access route. Automobiles and taxis are the primary modes fortransporting people between the airport and points of origin/destination. a m H A m POLICIES, ASSETS CMS, AND STRATEGIES 8 u ASSETS, PROBLEMS AND STRATEGIES The background material has been used by the committee and staff to help identify assets and problems that presently exist within River Island. Each functional area has been reviewed to establish what assets or strong points should be maintained and what problems should be addressed in the formulation of strategies. The following sections are divided according to functional areas in an effort to systematically present the findings of the study. It is recognized thatthe listings may be incomplete but it is also feRthat the major developmental and growth issues have been accurately identified and considered. The relevant River Island Area Policies which were developed to guide in the formulation of various strategies are presented at the beginning of each functional section to enable the reader to review proposed strategies in relation to the established city-wide goals and policies. The assets, problems and strategies presented here are the result of suggestions made, not only by committee and staff, but also by technicians who have expertise in one or more of the various functional areas. It should be noted that the strategies as presented are primarily recommendations and need the support of policy makers before they can be applied to effectively deal with problems. Both long and short term strategies are presented for possible application to the developmental issues discussed in this plan. Short term strategies should be considered practical in terms of implementation within the first six year period the plan is in use. Long term strategies are proposals that should be implemented, but for limitations such as cost, present policy, or limitations in the decision making process are not available for application in the short term. Generally, they appear to be recommendations that require additional investigation and are expected to become useful beyond the initial six year period. It is important to implement both long and short term strategies to effectively deal with problems and improve on the existing situation within River Island. HOUSING Almost half of the land in River Island is developed for residential use. It is recognized that maintenance and improvement of the existing housing stock is vital to the success of programs planned to bring about positive growth and development. The success of programs and strategies formulated to provide economic growth, community facilities, public services, environmental quality and transportation systems will depend largely on the success of programs and strategies designed to improve and maintain residential areas. Neighborhoods in River Island are predominantly single family in nature and generally exhibit homes that are in good repair. There are, however, variations of housing type and condition that have been identified and many problems which merit treatment as a result of this comprehensive plan The purpose of this section is to discuss assets and problems of the existing housing in River Island as well as strategies to either enhance the assets or mitigate the problems. River Island policies developed to guide the formulation of strategies are also presented at the beginning of the discussion, for review and comparison. The strategy concepts presented here are developed in more detail in Appendix 1. Relevant Area Housing Policies (Preservation and Rehabilitation) Promote housing preservation and rehabilitation by: - Encouraging proper repair and maintenance of existing housing. - Eliminating substandard housing in River Island. - Encouraging the maintenance of owner occupied units. - Preserving and enhancing neighborhood character. (Neighborhood Stability) Preserve the stability and quality of residential areas by: - Systematic and comprehensive enforcement of the city's Code of Ordinances. - Restriction of housing conversions to sites which are appropriate due to the structure and lot size and the type of surrounding land uses. - Provision of public improvements which are sensitive to the individuality and character of existing neighborhoods. (Redevelopment) Designate areas for housing redevelopment to: - Eliminate haphazard land use patterns. - Promote efficient land usage. - Improve the quality of the housing stock. - Enhance the visual character of neighborhood areas. tEncourage new housing construction which would: - Diversity the type, cost, style, size and location of housing stock. - Provide housing for all age groups and affordable to all income groups. - Accommodate shifts in housing demand. - Promote stability in population. - Provide mixed use residential/commercial structures in the central area. 39 Encourage sensitive site and architectural design by: - Promoting successful integration of new housing within the surrounding area through appropriate height, density and design. - Minimize any adverse environmental impact on adjacent land uses. - Providing usable green space within the residential development. Encourage high to medium density new housing in the central area and along certain major arterials to: - Promote a resident population in the central area. - Locate high population density near employment centers, institutions of higher learning, supportive services and transportation routes. - Assure a smooth transition between high and low density housing. Housing Assets Assets associated with housing or residential land use were identified by residents of River Island. The advantages pointed out in this section seem fairly obvious, but are worth clarifying. 1. All of the housing areas are close to the Central Business District for employment, shopping, recreational and cultural activities. 2. Housing is reasonably priced. Compared to new housing offering comparable space, homes here are a good buy. They are affordable to a wide range of income groups. 3. Most neighborhoods have a single family character and are quite attractive. Vegetation is mature and there are many large trees throughout the area. Residents referred to neighborhoods as having "character" and heritage. 4. Older residential structures with interesting architectural design can be found scattered throughout River Island. Over 70 percent of housing stock is in standard condition (LPD, 1978 survey). (Strategies: 0-6 Years) The following strategies are recommended to assist in preservation and maintenance of the standard housing stock found in River Island. These strategies directly relate to the assets presented above. Systematic code compliance: Utilize a set of neighborhood standards (including but not limited to city housing codes) to be developed by the Lansing Planning and Building Departments working with citizen groups. Concentrated code compliance programs should be used in areas with greater degrees of deterioration. This includes areas 1, 2, 3, 4, 5, 6, 8,10 and 11 (see Map 24). Areas of primarily standard housing will require a scattered enforcement policy (only areas 7 and 9) as illustrated on Map 24. 2. Adopt an all sales ordinance: which would require that housing throughout the city that is under consideration for sale be inspected for code violations by the Building Department. 3. Neighborhood Maintenance Organizations: Initiated by citizens with supporting funds allocated by the municipality and by local participating lending institutions. Technical assistance would be contracted with a private non-profit corporation such as the Neighborhood Housing Services Corporation (NHS). 4. Investigate the potential for including individual homes or areas under historic preservation legislation: to provide tax incentives and to attract federal and state grants for restoration purposes. Areas of primary consideration should be 7, 8 and 10. (Map 24) AREAS RECOMMENDED FOR APPLICATION OF STRATEGIES DESIGNED TO MAINTAIN ASSETS ®�■ MAN �r® ■■■ �lr JIsWo Nis Housina Problems The following are problems identified by citizens and/or Planning Department staff concerning housing in River Island. Stability within the area will depend on actions taken to address these problems. Directly following each problem , will be recommeded strategies designed to address that problem . 40 (Problem 1) The advanced age of housing in River Island suggests that many units are in need of maintenance and repair or have structural deficiencies. Most were built prior to 1940 and many others date back to the turn of the century. Many homes could not meet modern day housing codes. In many cases occupants are not aware of such problems. Map 5 in the Housing Profile shows general housing conditions according to block. (Strategies) Generally two types of strategies can be applied to non-standard units. Rehabilitation strategies apply primarily to units where it is economically feasible to retain them. Redevelopment strategies primarily apply to units or areas where at least selective clearance of blighted structures will be recommended. A further differentiation is then necessary between major redevelopment or reuse and selective redevelopment areas where selective clearance is used in conjunction with rehabilitation efforts. Map 25 indicates those areas recommended for preservation and rehabilitation efforts. Areas delineated for preservation are felt to have adequate housing and strategies are designed to maintain that situation. Map 26 will outline those areas recommended for major redevelopment and those where selective redevelopment should take place in conjunction with other maintenance or rehabilitation programs. (Rehabilitation - 0-6 Years) I. Systematic code compliance. See Housing Asset Strategies. 2. Adopt an all sales ordinance. See above. 3. Adopt an ordinance which establishes minimum exterior maintenance standards for all residential structures (including vacant structures). The ordinance should be developed jointly between the Building and Planning Departments and should address methods for dealing with vacant, boarded and neglected structures as well as those which are occupied. It would primarily be aimed at sustaining a good exterior appearance in a neighborhood. 4. Support changes or interpretations (utilizing the Mayor, Council and Planning Department) of State legislation which would allow local communities to utilize general fund monies for housing rehabilitation. 5. Utilize the Neighborhood Strategy Area Program to address the problems of landlords utilizing public funds to generate private investment by guaranteeing rent subsidies over a period of time. 6. Support amendments to existing federal, state and local tax laws (utilizing the Mayor, Council and Planning Department) to allow tax abatements, credits or rebates for rehabilitation improvements to housing units. 7. Use federal, state and local funding programs to promote rehabilitation and maintenance of the existing housing stock (see Appendix I for complete listing) such as: a. Community Development funds (under Sections I, 2 and,8) b. Section 312 Loan funds c. Housing Improvement Program (HIP) d. Neighborhood Improvement Program (NIP) e. Local funds which could be committed to Neighborhood Maintenance organizations. AREAS OF HOUSING PRESERVATION AND REHABILITATION AREAS FOR PRESERVATION OF PRESENT CONDITION EM AREAS FOR REHABILITATION EFFORTS Redevelopment Areas defined for redevelopment of blighted residential structures have been divided into the following categories: A. Selective Redevelopment where individual units may be razed in conjunction with rehabilitation efforts. B. Selective Redevelopment where individual units may be razed in conjunction with the Neighborhood Development Area (NDA) program. 41 C. Major Redevelopment where entire areas of housing are removed and reused for new housing or some other purpose. Map 26 shows generalized areas where the redevelopment guidelines have been applied. (Selective Redevelopment Strategies: 0-6 Years) 1. Selectively acquire and remove blighted structures in conjunction with rehabilitation efforts. The Housing and Redevelopment Department should initiate redevelopment activities with review, coordination and approval given by the Planning Department. The land, once cleared, could be used for new housing. green space, neighborhood parking, or split between adjacent property owners. Areas 1, 2, 8,10 and 11 are shown for such treatment on Map 26. Housing in Area 5 will also be similarily treated in conjunction with rehabilitation and code enforcement activities initiated under the NDA program. 2. Change lotting patterns by selectively clearing blighted structures and rearranging existing homes to provide more efficient and attractive use of the land. This would be a joint effort between the Planning, Building and Housing and Redevelopment Departments. Major Redevelopment Strategies (0-6 Years) 1. Amend the Zoning Ordinance to provide a category for mixed use development in housing areal 0 (Map 26) of River Island in order to promote more efficient use of land and to facilitate the construction of structures that would accommodate both residential and office uses. 2. Actively support with the means necessary the redevelopment of housing in the area known as Capitol Commons (Area 9, Map 26) EXISTING SITUATION POSSIBLE SOLUTION PLANS AND/OR RECOMMENDATIONS FOR SELECTIVE AND MAJOR REDEVELOPMENT OF HOUSING SELECTIVE REDEVELOPMENT Ej IN CONJUNCTION WITH REHAB. STRATEGIES 9 MAJOR REDEVELOPMENT EJ SELECTIVE REDEVELOPMENT IN CONJUNCTION WITH EXISTING NDA PROGRAMS 3. Consider alternative methods of funding the acquisition and relocation of all properties in Area 7 (Map 26) for the purpose of possibly constructing a parking ramp for State of Michigan and Oldsmobile employees. (See Circulation/Parking Section). 42 4. Acquire substandard housing and businesses in North Lansing Commercial Area between Turner and Center Streets and redevelop land for new residential uses (area 3, Map 26). Major Redevelopment Strategies (7-12 Years) Acquire and remove housing in Area 4 (Main, Street School area) for industrial purposes. Financing and phasing of the project to protect residents should be explored and considered jointly by the Planning Depatment and industrial firms interested in using the land. Several other more ,specific problems concerning residential areas have been identified as follows. The problem statements are followed by appropriate strategies. Problem 2 Houses which are vacant and boarded up have a negative visual impact upon the surrounding neighborhood. Vacant structures have been noted scattered throughout the River Island Area. Strategies (0-6 Years) 1. Adopt the ordinance for establishing minimum exterior maintenance standards (see Rehabilitation Strategies). In conjunction with the ordinance, a program to assist owners of vacant residential structures to secure financing and make the units marketable should be developed bythe Planning, Building and Housing and Redevelopment Departments. Problem 3 Repairs or remodeling efforts that remain unfinished for extended periods of time create negative visual impacts on the neighborhood. Strategies.(0-6 Years) 1. Develop a more stringent definition of "substantial progress" and develop a procedure to enforce the time limits related to such progress upon issuance of a building permit. This would be the responsibility of the Building Department. Problem 4 Single family homes have been converted for more intensive uses. Conversion to higher density pressure on parcels designed for single family use. Additional units require additional parking which necessitates more pavement and less green open space. The addition of units may also physically alter the exterior facade of the building, detracting from any historical value or neighborhood character. Conversions have been noted particularly in Areas 1, 2, 8 and 10 (see Map 24). Strategies (0-6 Years) I. Systematic Code Compliance to identity and eliminate illegal conversions. 2. Create a Design and Site Plan Review Process which would require the approval of the Building and Planning Departments prior to allowing the conversion of any unit to occur. Standards would include but not be limited to: a. A minimum percent of the lot area should be green space. b. A maximum percent of the lot area should be paved surface. c. Sign code requirements should be enforced. d. Preserve the residential character by maintaining or rehabilitating the residential facade. e. Screened service area. 3. Limit office uses to the area east of the properties facing on Pine Street and south of Shiawassee Street. This strategy would be used to preserve the residential area to the west and to concentrate office uses near the CBD. Problem 5 Homes are subject to periodic flooding particularly in housing areas 1 and 10 along Grand River (see Map 24). Strategies (0-6 Years) I. Institute the Floodplain Warning System. Problem 6 There are unattractive and inappropriate trash receptacle areas around multiple dwellings (many converted from single family) where the trash receptacle occupies several spaces in the parking lot without fencing or screening. This has been particularly noted in housing areas 1 and 2. (See Map 24) Strategies (0-6 Years) 1. Amend the Zoning Code to require screened and/or fenced service areas for multiple dwellings. This would be administered by the Planning Department as part of the Site Plan and Design Review Process and Zoning Code Enforcement responsibility. 43 ECONOMIC DEVELOPMENT In this section, the major components of economic development will be discussed, these include: 1. Business/Commerce 2. Office r 3. Industry A format similar to the one in previous sections will be utilized. The relevant area policies will precede the identification of assets, problems and strategies by geographic area. Map 27 depicts the general business/commercial nodes, office areas and industrial facilities. (see page 50 for Map 27) Each node will be discussed separately to insure that the unique features of that area are addressed with specific strategies. However, several of the stated problems, assets and related strategies are applicable on a general basis and will be discussed as such. Relevant Area Policies Commercial (Central Business District) Support the stimulation and enhancement of the Central Business District by encouraging: - A balanced mixture of land uses. - The development of a hotel/convention complex in the CBD. - Land uses which are people oriented (such as restaurants, cafes, theaters, museums, churches, etc.). - Land uses which attract people at all hours (including evenings and weekends). - Beautification programs by both the public and private sectors for visual enhancement. - Commercial rehabilitation and redevelopment where feasible and necessary. r - The provision of adequate loading and delivery facilities. - The development of multi -use structures. - The extension of the Washington pedestrian mall to the four or five blocks south of Michigan Avenue. (Other Commercial Areas) Support the stimulation and enhancement of other commercial areas in River Island by encouraging: - A mixture of land uses which will provide a range of goods and services to neighborhood areas and the community. - Adequate parking, loading and delivery facilities. - Adequate pedestrian and vehicular access. 44 Office Uses in the Central Area Support the retention and expansion of a variety of office uses in the Central Area including: - (State Offices) - Where the State of Michigan shall be encouraged to renew their commitment to retain and expand their office space in the Central Area of Lansing before constructing or occupying any further office space in' peripheral locations. Additionally, the State of Michigan shall be encouraged to construct their own facilities within the existing State Complex before leasing or purchasing existing privately owned office space in the future. - (Municipal, County and Other Governmental Offices) - Where the administrative functions of all municipal departments shall remain in the Central Area as well as encouraging appropriate functions (i.e. courts) of the county government and other governmental bodies to locate in the Central Area. - (Financial Offices) - Where emphasis shall be placed on the Central Business District of Lansing as the regional center for all major banking and financial institutions. - (Professional and Supportive Services Offices) - Where effort shall be made to retain existing and develop new professional offices (i.e. dentist, doctors, lawyers, lobbyists, etc...) and supportive service offices in the Central Area. Retention of Existing Offices and the Establishment of New Offices in the Remainder of River Island Support the retention of existing offices and the establishment of new offices in other areas of River Island where: - Clustered or grouped to provide numerous services in one building or geographic area. - Appropriate within the context of the surrounding land use and zoning. - Adequate off-street parking is available. Industrial Uses (Industrial and Warehousing Continuation) Support the continuation of present industrial and warehousing. activities by supporting municipal actions which encourage these concerns to remain in River Island. (Improvement and Rehabilitation) Support the improvement and rehabilitation of the present industrial and warehousing activities in order to provide: - Adequate on site parking and load) g facilities - Adequate buffering and screening from less intensive uses. - Adequate access to the major street system. (Potential Expansion) Support the potential expansion of present industrial and warehousing activities in appropriate adjacent land areas. Adequate screening and buffering are provided. - Adequate measures have been taken to minimize adverse environmental impacts, but not limited to, air, water and noise pollution. - Adequate and appropriate access to the major street system is provided. - Adequate on site loading facilities are provided. - Expansion does not damage viable adjacent, residential neighborhood areas. Commercial/Business Uses Assets The following are assets identified concerning the commercial, office and industrial uses in River Island. The general assets which can be applied to all three types of uses is that these concerns provide tax base, jobs and convenient services for River Island as well as for the city and region. Area Specific Assets: Commercial Area A: Logan -Birch Triangle (See Map 27) The eight acre Logan -Birch Triangle with good transportation access will be available for the city to develop. Strategies (0-6 Years) 1. The Planning Department should actively solicit the involvement and support of Oldsmobile, Fisher Body, Michigan State University, the State of Michigan, residents, Chamber of Commerce and downtown business to develop a viable site plan for the Logan -Birch Triangle which tentatively could include a mini - museum, restaurant, park and visitors center combination which would occupy the southern five acres of the site. Commercial Area D: North Lansing Commercial District - See Map 27 The North Lansing Commercial Area has a number of historically significant buildings and potential as a unique shopping area with a city or possibly even a regional market. Strategies (0-6 Years) 1. Adopt a local Historic District Ordinance and designate the North Lansing Commercial Area as one historic district. Such an ordinance will allow businessmen to initiate efforts that will preserve and restore the historic structures in conjunction with other efforts to revitalize commercial endeavors. 45 �aOPp�[► lC�3 Central Business District The following are assets identified for the Central Business District. These are seen as positive elements which should be encouraged and/or expanded. (See Map 27) Assets 1. Close proximity to the riverfront is an asset to be capitalized upon. 2. Several "quality" retail establishments offering specialized merchandise. 3. The North Washington Mall is an asset to be capitalized upon as it provides the major north -south pedestrian link between the CBD and other major activity centers such as Lansing Community College. 4. Several older buildings with interesting architectural features are located in the CBD which enhance the character and style of the area. Strategies (0-6 Years) 1. Advance and support the development of the waterfront as outlined in the Community Facilities Section. 2. Support the development of the South Washington Mall to increase pedestrian access throughout the downtown and to beautify the area. 3. Provide design and technical assistance through the DDA and Planning Department to businesses wanting to do facade restoration in the CBD. Problems (Area Specific Problems) Central Business District Commercial Area (See Map 27) (Problem 1) Lack of activities on weekends and evenings is a major problem of the Central Business District. Lack of activity and early closing times are primarily deterents to persons wanting to purchase goods or services in the CBD after 5:30 p.m. When a major activity or event occurs, people are attracted to the Central Business District (i.e. ethnic festivals, fourth of July celebrations and Civic Center concerts, etc.), however, these events are sporadic, and sometimes months pass with no event scheduled. High overhead and operating costs of commercial businesses coupled with few customers is the reason most often voiced for not remaining open during evening hours. Strategies (0-6 Years) Strategies (0-6 Years) 1. Develop a marketing program through the Downtown Development Authority to 1. Adopt Phase II of the South Washington Square and Environs Study which promote downtown activities. This would necessarily involve cooperation from generally endorses the following: the business, cultural and recreational concerns in the CBD. A. Eventual overhead enclosure with second story pedestrian passage ways to all One element of the marketing strategy might include a system of encouraging ramps. patronage, using a cooperative agreement, between various concerns, that is, if B. Eventual removal of all automobiles. from the mall. someone goes to a play downtown, they may receive 10 percent off their next purchase at a downtown store. This system would also work in reverse. This system would promote continued patronage of the activities and stores in the (Problem 3) downtown. Lack of access to telephone and restroom facilities was identified as a major 2. Provide the personnel necessary through the Downtown Development Authority irritation to customers in the CBD. There are few phones available to the public out to promote, coordinate, and implement programs, festivals, and activities in the of doors, and few accessible restrooms open to the general public. downtown. Strategies (0-6 Years) 3. Riverfront Park should be utilized more heavily for concerts, plays, festivals and events in conjunction with downtown activities. 1. Support the construction of a comfort station with an information desk in the 4. Continue to pursue through the Economic Development Corporation and South Washington Mall as proposed by the South Washington Square and Environs The Study. comfort station should include restrooms, telephone, Downtown Development Authority for the development of the 100 block of North information booth and be patrolled regularly by police officers. Washington for a hotel/convention center complex. (Problem 4) 5. Adopt the entire Phase I development of the South Washington Square and Environs Study which includes a variety of elements which are aimed at providing Competition for parking spaces in the South Washington Mall is created by a more convenience for customers and clients and at improving the general demand from both customers and employees wanting to park as close to their appearance. Several of the more prominent features include: destination as possible. Some additional competition occurs when delivery vehicles occupy space(s) for long periods of time or double park behind legally parked A. Creation of a design review board for the CBD. vehicles. Cars have been observed waiting along Allegan, Washtenaw and Kalamazoo for 20-30 minutes to park in the mall. B. Construction of pedestrian bridges across the Grand River. C. Creation of a free package delivery service which would allow customers to have packages either delivered to their home or picked up at their EXISTING SITUATION convenience when finished shopping. D. Provide for an automotive service center on the perimeter of the CBD. It i; o _ - should be noted here that the River Island Master Plan Study agrees with the fE ft a r ` concept, but that the location should be moved to the southern half of the + block bounded by St. Joseph, Washington, Hillsdale and Grand Avenues. A shuttle service could be provided for those central area employees wishing to leave their automobile for service or repair. E. Free bus loop for state employees. This will be discussed more fully in the Transportation Section. 6. Vigorously pursue the development of another major department store in the CBD. Utilizing the municipal, DDA, EDC and private resources necessary to accomplish this strategy. POSSIBLE SOLUTION (Problem 2) _ Exposure of the elements during inclement weather detracts from the desirability of downtown as a principle shopping location. People do not like to have to walk outside between stores to shop in inclement weather. NIWNs d �1WTH Wagg"w WIC I A." WON AXONAL RNtTE A BHT¢R rymricnv6 MN F2 �[+t VEO ` Ny AWAUNC, UN°AR HE'N OP YAPAU femms AN OIP. -nm. POA° XGALPINM1G WOAb fJ�PJd6 INTP esr .an.ic 46 Strategies (0-6 Years) 1. Promote Park and Shop Programs in the mall with attended parking (until Phase I I occurs when cars are completely removed), and allow free parking at the surrounding public ramps for two hours also with attended parking. Any loss in revenue would be paid from special assessments collected by the DDA. (Problem 5) Some buildings in the Central Business District are in need of maintenance and/or renovation. Many of the building facades in the CBD require restoration or rehabilitation. In many cases, actual renovation would not be necessary; cosmetic changes would be sufficient. Strategies (0-6 Years) 1. Provide design and technical assistance through the DDA and Lansing Planning Department to businesses wanting to do facade restoration. This could include assistance in developing working drawings and construction specifications, EXISTING SITUATION P(1CSIR1 F Cr)l I ITIr1N Problem 6 Deficiencies in many CBD buildings, according to present city codes which make utilization of upper story space feasible (i.e. lack of accessibility by handicapped persons, inadequate electrical service, lack of fire proof walls and other building materials). Much of the vacant office and commercial floor space is directly related to these deficiencies. Strategies (0-6 Years) 1. Create a revolving loan fund through the EDC to assist the owners of retail and office structures in the CBD to complete renovating work which would bring the structure into compliance with present city building and fire codes. 47 (Problem 7) Lack of exterior maintenance particularly along South Washington. With cars in the south mall it is difficult to provide adequate snow removal or street sweeping particularly by conventional machines. In addition many persons identified dust and debris as major detracting elements to shopping in the Central Business District. Strategies (0-6 Years) 1. Develop a program with the necessary personnel (possibly CETA labor) to provide regular daily maintenance of the CBD. This program should include daily periodic sweeping of the sidewalk and street as well as additional attractive litter containers. (Problem 8) Fear of crime in the CBD is a serious problem. Although Lansing Police Department statistics indicate that crime rates are low in the CBD, many people have a preconceived notion that crime is high. Strategies (0-6 Years) 1. Utilize the Lansing Police Department crime prevention unit to educate the general public about the lack of crime in the CBD. Commercial Area B: West Saginaw Commercial Area (Map 27) (Problem 1) Lack of grocery store and hardware. Strategies (0-6 Years) 1. Utilizing the Economic Development Corporation, explore the potential for developing a grocery and hardware store in the West Saginaw Commercial Area. Greater use could be made of the grocery store on West Michigan Avenue in the township. C.,; w Cem--W A. <pl-1 Fa P—It. 4V." I. q,p.r Grn�lw Loge .'9;&urlk pit iKh a [1—' t-t k mt.w'9 Q..w 9g (Problem 2) Parking and interior circulation behind the buildings on the south side of the street need improvement. There is no signed, coordinated circulation pattern particularly around the bank. Some of the parking areas are not striped which encourages disorganized and inefficient parking while some lots are not paved. There is also a lack of well defined loading zone separated from the general parking area. Strategies (0-6 Years) 1. Adopt and implement the West Saginaw Commercial Area Plan. The plan would provide funds for expansion and improved appearance of city owned parking facilities in the West Saginaw Commercial Area north of Saginaw Street. Implementation of the plan will also allow for expansion of some of the commercial concerns. Designate this area as a Commercial District under the Tax Abatement Program. Develop access and parking plan with businessmen along the south side of the West Saginaw Street Center. 11 1 i I EXISTING SITUATION POSSIBLE -4/ CWAF ow n?afe^ 'WA 1 AS AT 1NESE CM E5 WILT INTO ��,//AU.-S LOTS AT WMEn � �INA1N. 2. Establish a commercial design assistance task force to promote improvement of the appearance around commercial areas. Work with businessmen to redesign Willow Plaza and the West Saginaw Commercial Area according to a coordinated design concept for building facades and signage. Consideration be given for developing these centers with a theme concept similar to that described for the North Lansing Commercial Area. The design centerwould be responsible for providing advice and information concerning design criteria and financing arrangement available to local merchants. Commercial Area C: West Saginaw Point at City Limits (Problem 1) The west end of Saginaw Street has experienced strip commercial development that presents safety and design problems. The excessive number of curb cuts required to provide access to each store situated along the "strip" may constitute a traffic hazard. Strip commercial development detracts from the appearance of the surrounding area. This development is a prominent feature and first view of Lansing when entering along Saginaw from the west. Strategies (0-6 Years) Investigate the possibility of combining several businesses in the strip commercial area of West Saginaw into mini -shopping centers. Such action would enable development of shared parking areas and reduce the need for multiple curb cuts as points of access. Development according to the coordinated theme concept discussed for other commercial centers would eliminate the unattractive appearance inherent to strip commercial developments. Improvement of the Point's visual appearance through the use of sign controls and landscaping should be pursued by the city. Land assembly for new commercial enterprise could be encouraged. Commercial Area C and D (Map 27): North Lansing Historic Commercial District and other commercial nodes (Problem 1) Many structures which are suitable for commercial use are presently vacant. Vacancy rates in North Lansing and other areas are high. The incidence of vacant commercial buildings can be linked to a lack of patronage, physical deterioration and poor reputation. Strategies (0-6 Years) Designate the North Lansing Commercial Area as a District to be established under a local historic ordinance. The city, in cooperation with businessmen in the area, could initiate efforts to develop such a district according to an appropriate theme in keeping with its historical heritage. Design criteria should be established to promote coordinated development of both building and signs. Attract the types of business that would best serve tourist or local residents interested in viewing the district, using the improved park system along the river or fishing below the North Lansing dam. Establish a diversity of useful businesses that would complement each other and be mutually supportive. See Commercial ?roposed bbmet U9htiwq••}{Is�orw UISirIL� 2. Vacant structures and marginal commercial activities must be dealt with if commercial centers, and especially North Lansing, are to become successful once again. Strategies should include programs that would encourage 48 reinvestment into such areas. A. Investigate the possibility of acquiring grant money through the local Economic Development Corporation to provide capital loans at favorable interest rates that would encourage investment in commercial areas of River Island. Matching funds, if necessary, would come from the general fund. B. Utilize recently passed State of Michigan legislation that will allow the city to adopt a tax abatement plan to encourage commercial redevelopment and investment. Tax savings would work as an incentive to effectuate repairs or rehabilitate commercial structures located in the commercial areas. The same plan could be used to initiate reuse of abandoned gas stations. The city should designate the North Lansing commercial area as a commercial district eligible for the abatement plan. C. Improve commercial centers within River Island by applying public funds to upgrade the surrounding street and publicly owned parking areas. Acquire and apply grants available through various federal programs for the purpose of improving curb, gutter, streets and sidewalks. Use the Capital Development Program to finance such improvements. Office Uses Assets Office space in all four office districts is in close proximity to the CBD and is reasonably priced in comparison with rents paid in other parts of the city for similar facilities. (See map 27 )or office districts 1, 2, 3 and 4.) Problems Conversion to office changes character of neighborhood. When residential structures are converted to office uses a different set of traffic, parking and use patterns occur which, in many cases are not compatible with surrounding residential uses. The intensity (measured by thenumber of employees/square foot) of the office use often determines the extent to which adjacent homes are subjected to the traffic and noise problems related to office uses. A related problem is overpaving of narrow lots. In order to provide a sufficient number of parking spaces, much of the back and side yard (if any) is paved. This increases water run-off which contributes to over -loading of the combined sewers during storms. A paved backyard is also not in keeping with the residential nature of the surrounding neighborhood, particularly in areas 2 and 3. Conversion also changes the traffic pattern within an area. Frequently the number of trips to and from the parcel is increased but generally only during the normal working hours. Strategies (0-6 Years) Amendment of the zoning code by the Planning Department to provide different densities for different types of office development. Characteristically, the most dense development zone would be in the Central Business District. In residential areas where office uses are to be permitted, the square footage of office space per lot area range should be substantially lower. This would assist in assuring that the scale of office development in residential areas be controlled and maintained so as to be in proportion with surrounding structures. 2. Create a site plan and design review process which would require approval by the Planning and Building Departments prior to any conversion of residential to office or multiple dwelling use. Several standards should be included in the review such as: A. a maximum percent of lot area which can be paved, B. a minimum of lot area to be green open space, C. preservation or rehabilitation of residential facades (where applicable), D. strict sign code requirements specifying low profile, inobtrusive signs, E. screened service areas for trash recepticles. 49 Office Area 4: State Governmental Complex Assets The Capitol and the adjacent complex provide a substantial portion of thejobs in the Central Area, and are a major segment of the market for downtown businesses, and represent a potential market for downtown housing. The Capitol building and particularly the lighted dome are an easily recognizable and striking symbol of Lansing. Strategies (0-6 Years) 1. Continue developing liaison relationships both on a technical level (Planning Department) and political level (Mayor and City Council) with appropriate state agencies and legislators to insure the continued growth and expansion of the State Capitol Complex in central Lansing. Problems Continued growth has caused concern over circulation, parking and land use. The existing state Master Plan indicates parking other than that provided beneath the buildings as they are constructed. When the entire complex is completed there will not be enough parking for the employees without at least one parking ramp. Location of this facility should be planned so that adequate circulation can be assured. Circulation of cars is already a problem because of the number of vehicles which penetrate into the central area each day. With a potential for another 5,500 employees soon, some arrangements for dealing with these vehicles must be made. Lastly, general land use patterns are not defined due to the substantial changes which have occurred since the inception of the present Master Plan. The Governor's residence is no longer planned for the Complex and a museum seems like the most likely use for the space, but nothing is assured. In addition to the buildings already proposed, it is unclear as to the disposition of the other vacant blocks in the complex. Strategies (0-6 Years) 1. Recommend updating of the State Capitol Complex Master Plan at the earliest feasible time. Once it can be ascertained from the State of Michigan what their plans are over the next 10 years, it will be necessary to work with state officials to assure that land uses in and around the complex are compatible, traffic can be accommodated, and that parking problems are solved. 2. Recommend joint review of the architectural plans for the new site buildings already proposed and for future construction. This strategy will be helpful in developing compatible land use and assuring adequate access. 3. Explore the potential for state -city cooperative efforts (Bureau of Facilities, Lansing Planning Department) to return the eastern portion of Ferris Park to a park. 1 1 i 1 1 1 1 1 1 1 MAJOR NON RESIDENTIAL AREAS COMMERCIAL El OFFICE N INDUSTRIAL MIN 0r E E El STATE OF MICHIGAN E] CENTRAL BUSINESS DISTRICT Industrial Uses (See Map 27) Assets Industrial facilities provide a substantial tax base and job opportunities for area residents. Problems (Problem 1) Industrial concerns have no room to expand. While at present only Oldsmobile has expressed a desire to expand in the city, it is reasonable to assume that the situation may change sometime in the future. Most industrial sites are now closely bordered by residential areas. Expansion would necessitate redeveloping such areas for industrial use. It is anticipated that the Main Street School area directly west of the Oldsmobile Plant Complex will eventually all be used for industrial purposes. In the interim the neighborhood is subjected to visual and noise pollution. The Sunset Street area contains intermixed vacant parcels and industrial and residential land uses. However, the predominance of industry along Sunset provides a potential for future industrial expansion. Strategies (0-6 Years) 1. It is expected that industrial expansion by Oldsmobile will occur to West Street from the east between Main Street and Olds Avenue. Also, industrial use is anticipated along the south side of Olds Avenue between Industrial Welding and Oldsmobile facilities. Industrial expansion must be accomplished on a block by block basis wherebythe time sequence for resident relocation and demolition will have minimal adverse impact on the displacing persons and adjacent neighborhood residents. 2. With this understanding, it is recommended that municipal staff assistance be given during acquiring and relocating the Main Street School residents where the industrial uses are ready to expand and when there is sufficient replacement housing available within their ability to pay. 3. Until such time, landscaping and other protective measures should be taken to mitigate any environmental and visual problems experienced by residents as a result of industrial expansion. This landscaping could be a combined effort where the city provides heavier plant material in the public right-of-way and the industries screen with fences and plant materials around their facilities where they face or are adjacent residential structures. Strategies (7-12 Years) 1. Designate the Sunset Street Area as an industrial park and establish a private and public cooperative effort to initiate development or improvements conducive to industrial expansion on available vacant and interspersed residential lands. 2. Industrial expansion and development is anticipated to continue in the Main Street area. Plausible Future (Beyond the Time Frame of This Plan) 1. It is plausible to expect that the entire Main Street School area will eventually be used for industrial purposes but not until the 10 year scope of this plan has elapsed. (Problem 2) Truck traffic along Olds Avenue, Glenrose, Comfort, Walnut, and Michigan which creates noise pollution for residents of the area. Strategies (0-6 Years) 1. Adopt a truck ordinance which restricts the movement of truck traffic to certain streets. The city Police Department would be designated as the enforcement agency. (Problem 3) Shift change conflicts in the Oldsmobile Industrial Area. These conflicts occur as a result of the large number of persons leaving one central location at the same time. It includes pedestrian, bicycle, motorcycle and automobile conflicts. Primarily along Williams, St. Joseph, Pine and Walnut. Strategies 1. Channel employee traffic directly to the major arterials (Logan/Birch, Olds Avenue and 1-496) in order to keep traffic out of the pedestrian areas and industrial collector streets. 2. Investigate the methods to separate pedestrians from the industrial street traffic between the plant areas and the parking lots or transit stops. (Problem 4) Potential industrial expansion and intrusion into sound housing near or into areas designated for other purposes in such areas as North Lansing or Comfort Street. Strategies (7-12 Years) 1. Recommend relocation of industrial concerns seeking to expand in the Comfort/Muskegon Street area or in North Lansing. Accommodate relocation to another part of the city by providing a suitable site with appropriate capital improvements and access. 2. Assist in the eventual acquisition and relocation of Boyd's Trucking to a more appropriate location. 51 E COMMUNITY ,FACILITIES COMMUNITY FACILITIES The existence and availability of community facilities is a great asset to River Island and the city. From churches, theaters, libraries and three colleges to the Civic Center, parks and recreational centers, all providing different types of entertainment and recreation. Existing facilities are shown on maps 8, 9 and 10 in the Background Section. Relevant Area Policies Support the provision of additional or expanded park facilities to accommodate the recreational needs of individual neighborhoods by: - acquiring additional park land where appropriate ' - obtaining rights and easements when acquisition is not feasible - working with the Lansing School District and other educational institutions to pursue joint park and open space acquisition programs - working with the State of Michigan to develop usable open space on state owned lands. Acquire additional public space to provide passive recreational opportunities and visual relief within densely developed areas of River Island. Support a program of regular park maintenance to provide adequate care and attention for. - every existing park, public open space and traffic island - all new parks and open space areas as they are developed Encourage increased utilization of existing park and recreation facilities by: - improving and modernizing existing park facilities to meet present and future service area recreational needs - providing effective notification as to available recreational opportunities Pursue the preservation, acquisition and/or control and development of the waterfront by: - acquiring parcels as they become available to provide access to the river - obtaining rights and easements when acquisition is not feasible - adopting appropriate zoning, land use and design controls - improving access and use of public lands adjacent to the river - developing fishing, boating and other recreational activities Encourage further development of the 'Community School -Park' concept to increase the recreational and educational opportunities available to the community by: - establishing a formal process to coordinate programs, facilities and services - exploring multiple use of school facilities for community oriented activities during non -school hours - improving the school playgrounds to meet both educational and neighborhood recreational needs 52 Support the retention of the facility for visually or otherwise handicapped students by making improvements to the physical environment, such as curb cuts, voice automated traffic signals, effective traffic signage, etc., to facilitate unrestricted movement throughout River Island. Encourage the continued existence and expansion of the institutions of higher learning in River Island by- - working with the respective institutions to anticipate and plan for expansion to assure adequate parking, utilities, transportation and housing. Encourage churches in River Island to remain and to make theirfacillties available to the community whenever possible. Recommend a program which would increase the availability of libraries in River Island by: - increasing access and hours at neighborhood school libraries and the main library to include evening, weekend and summer hours - utilizing library facilities for a variety of educational, community and cultural activities ..,.r'rl.7_ *0 TH ARK�6Far�U[Y UBRAR V1 I70'N�N REh�MR�[D M ! Support cultural arts in River Island by: - rehabilitating existing facilities where needed - constructing new facilities in the central area as space needs dictate - encouraging communication and cooperation among the various cultural arts groups and organizations - supporting, promoting and publicizing artistic and cultural activities - encouraging shared facility use wherever possible Support the maintenance and expansion, when necessary, of St. Lawrence medical facilities by: - supporting the provision of adequate parking facilities - encouraging adequate screening and buffering - supporting the provision of on site open space for passive recreational use for patients - designating area in the vicinity of the hospital for the location of medical support activities Encourage the disbursement of additional residential treatment facilities to other sections of the city to avoid further concentration of these facilities in River Island. Encourage the continued existence of present day care facilities and the initiation of new centers as needed in selected locations where: - adequate physical space is available (indoor and outdoor) which can be screened and buffered from surrounding land uses - adequate vehicular and pedestrian access are available to assure the safety convenience of users and surrounding residents Encourage the development of multi -use facilities for senior citizens in the Central Area which would incorporate housing, medical and recreational components. Assets All existing community facilities are considered to be assets. The locations of existing community facilities are shown on Maps 8, 9 and 10. The strategies to improve these facilities are the same as those used for the problems. Problems (Problem 1) There is a general lack of maintenance for city and state owned parks in the River Island area (such as unmowed grass, weedy flower and shrub beds, litter, inadequately maintained play equipment). Strategies (0-6 Years) 1. Regular park maintenance schedule especially for cutting grass and picking up trash. Parks and Recreation would be responsible for this. 2. Provide additional manpower and machinery to Parks and Recreation where necessary to keep a regular maintenance schedule. Funds for this would come through the city General Fund and available federal programs. 3. Develop a program in conjunction with (2) above for voluntary resident participation in maintenance of neighborhood parks. This program would be administered by the Parks and Recreation Department. 4. Delay the purchase of additional parkland until a regular maintenance schedule is completed. 53 ST JOE'S PARK I ; i BUFFER - 5GREENNNr-A +� OF P"CeNT RAILRW _ Y LROfSSECTION. F, FVa l Y= F6ke Q f jFHl � 4K.. HI4 WIEN FEWA AND ,T Is 4TALGERLD H. lD WK MG C ANLE, FU G IN FENQ ¢ Aw r4Y ab LYEF w FOH i M. Ca ADD u1RtEST AND DE,{H, KXII0 gES YlR SCFTEN R! )I AY sr ,EApI Ol Y16URNJAI NAND LNES 6 r yyKf NViHI (rM�D�L ' Tp NEYlFS ry'EKNO CARS 2 ND,cVp 'fRNtR PDN L') ,E OVcS tR ANFLLS. (Problem 2) There is a lack of coordination of neighborhood park activities and equipmenttothe population of certain neighborhoods. In particular, suggestions of the citizen committees included: a. Durant Park - facilities of older people (shuffle board, benches) b. Comstock Park - tennis courts c. West Side Park - more community activities (kids play equipment, tennis courts). d. Ferris Park - more active adult facilities e. River Street Park - more active adult facilities (i.e. jogging, track, basketball, volleyball, and picnic tables) f. Osborn Park - some equipment for grade school children g. St. Joseph Park - some equipment for junior high school aged children Strategies (0-6 Years) 1. Support the parks utilization study proposals and incorporate them into the Capital Development Program. 2. Formalize a process whereby residents and Parks and Recreation Department can interact to determine what park equipment best serves the community. 7A :r t 1 1 U � ctrasrls CA RS"TRN4s. � ,!� �, !►,psi M�1 PQUM MYELOPMrAr ON srALO LANDS Wm.D MCUm 4AY-rpG MVELDrA r DF IL" & rPAUL��L'r�-�yFA L "Wars" caWs WIIN RM�wls p� ALMIMS AN. ZOO" ORMLIO LAND A W " roadltE5 54 (Problem 3) There is a lack of information or effective promotion of park, recreational and school activities or facilities available. This is generally a problem relating to all parks and schools. Strategies (0-6 Years) 1. Promote park and school activities with an agressive information campaign including but not limited to advertising, public service announcements, regular releases to neighborhood organizations and newspapers. The Parks and Recreation Department with aid from the Lansing School District. (Problem 4) There is a general underutilization of school facilities especially in the summertime. The most obvious of these are schools with swimming pools. They are open part time in the summer months. Strategies (0-6 Years) 1. Use federal or state funding sources to enable the school district to expand summer time hours for recreational activities in school buildings. 2. Develop a neighborhood volunteer organization to provide qualified volunteer workers for in -school activities so that hours can be expanded. 3. Promote an active advertising campaign utilizing the same techniques as those to be used for the parks (Problem 3, Strategy 1). (Problem 5) The Riverfront Park is underutilized. Strategies (0-6 Years) 1. Actively promote and encourage many more activities in Riverfront Park. Examples of activities are regatta and canoe races. These promotion activities can be carried out by the Parks and Recreation Department in conjunction with the Chamber of Commerce and various civic organizations. 2. Use various design techniques to define and emphasize the Riverfront Park, so that passersby know where the park is located. (Problem 6) There is underutilization of all waterfront areas along the river in the River Island area. Strategies (0-6 Years) 1. Continue to implement the Riverfront Plan which includes acquisition and development of areas adjacent to the river for public use and control especially street ends at the river. SAFETY FROM HAtARDOUS SLOM SY "RAMS OF OBSERVATION DECK% E BENCHES USED IN COhIJUNCTION WITH FENCING 2. Support activities that promote and encourage use of the river. 55 (Problem 7) The eastern portion of Ferris Park is used for state government parking. During the spring and summer the western portion of the park is heavily utilized all day long and that some people play basketball by street light long after dark. With continued conversion to multiple dwellings in the vicinity it is obvious that additional space is needed. Ferris Park has been parkland since the incorporation of the city until nine years ago when the State of Michigan decided to utilize half of it for a "temporary" parking lot. It, like most other state parking lots, is unpaved and creates both traffic and dust problems for area residents as well as being unsightly. Strategies (0-6 Years) 1. Actively pursue the return of the eastern portion of Ferris Park to park use. This will require the acqusition of a deed for both halves of the park with the restriction that it be used only for park purposes. Once this is accomplished, it is recommended that one block of Chestnut Street be vacated between Genesee and Shiawassee to create one large park with at least one additional basketball court. The responsibility for this effort should be jointly shared by the Planning Department and the Parks and Recreation Department. City owned property could be offered to the state as an exchange for Ferris Park. (Problem 8) There is a lack of public "green space" in the central area. Part of the situation is a result of the extensive use of concrete and other paving materials in the North Washington Mall. Strategies (0-6 Years) 1. Design and develop green spaces in the North Washington Mall area. This would particularly apply to the proposed extension of the mall. In addition, any future development in the CBD should be required to provide some "green areas"; this can be done through the Downtown Development Authority and the Planning Department. 1 t PUBLIC SERVICES Public Services Public Services includes all of the major municipal services and public utilities provided in a city including: - Construction, repair and maintenance of streets, curbs and sidewalks Gas, steam, sewer, electric and telephone service - Police and fire services Relevant Area Policies (Electric and Telephone Service) Encourage the placement of all utility service underground in all new and redeveloped areas when constructed to: - lessen the number of physical obstacles within the street right of way (R.O.W.) - enhance the visual appearance of the neighborhood (Storm and Sanitary Sewers) Promote a program to upgrade the sewer system in order to eliminate water pollution by: - separating storm and sanitation sewers where possible and feasible - utilizing a system of retention basins and/or other alternative techniques which would be less costly and as effective as separation (Steam Service) Promote a program to increase the steam service area to allow efficient heating and cooling service to potential new developments (both residential and non-residential) in the central area. (Street Lighting) Promote a street lighting program whose objective is broadened to include the concept of right-of-way lighting by placing equal emphasis on illuminating both the streets and sidewalks. Promote a residential street lighting program which will be suitable and appropriate to the character of the neighborhood and acceptable to residents. Assets Public services are generally available and adequate throughout the River Island. These include: 1) streets, curbs and sidewalks, 2) public utilities, 3) police and fire services. The strategies which will be recommended to mitigate problems will also be benefits to enhance the availability of the service. Strategies (0-6 Years) 1. Continue to provide for public services through the Capital Development Program. 56 Area Specific Assets Asset Steam service for the Central Business District is an asset especially because gas permits for non-residential uses are in short supply. Strategies (0-6 Years) 1. Maintain the present steam service area primarily for non-residential customers. However, if gas becomes scarce, plans for expansion of the steam service area should be available at least to Logan Street. Strategies (6-12 Years) 1. Investigate the potential for increasing the steam service area in the central area. Support the Board of Water and Light Study. 2. Recommend to the Board of Water and Light that serious investigation into other sources of producing electricity be initiated such as wind, solar, etc. Asset Lighting on the Capitol dome is a major asset which residents find aesthetically pleasing. Strategies 1. Support the continued lighting of the Capitol dome as a symbol and landmark of the central area of Lansing. Asset Lighting on North Washington Mall was also identified as adequate and appropriate. Strategies 1. Continue to provide the present levels of lighting on North Washington Mall and investigate the potential for using those lights on other streets in the CBD. Asset Overall police and fire services are rated high as being generally efficient and capable. Problems (Problem 1) There are sidewalks, streets and curbs which need repair and/or replacement. No such comprehensive analysis has been done for sidewalks, however, observations from area residents indicated that there are some problems. Strategies (0-6 Years) 1. Institute a regular program of sidewalk, street and curb repair and replacement. Prior to institution of such a program however, a city-wide comprehensive study of existing sidewalk condition should be done and then financed by Act 51 and CDP funds. 2. Institute a more frequent maintenance program for street sweeping (particularly on Washington, Capitol, Grand, Logan, Willow and other high volume streets). (Problem 2) Street names and numbers are not consistent. Street name signs are not always located in the same position at the intersection making it difficult and confusing to locate. Street numbers are required when a building is constructed but they are not necessarily maintained through the years. This makes it difficult to locate a particular address. Strategies (0-6 Years) 1. Enforce the city Code which requires all structures to clearly display street address numbers. The Building Department would assume this responsibility. 2. Place the street name sign at the same location at all intersections. (Problem 3) There are "series incandescent' street lights that need replacement. These lights are old and frequently malfunction and are wired in a series. When one light goes out, all lights in that series also go out. However, the present street lighting standards and fixtures are favored by residents over any modern type. Areas that contain older incandescent lighting are shown on Map 16 in the Background Section. Strategies (0-6 Years) 1. Develop a procedure for neighborhood selection of street lights for defining neighborhoods. (Problem 4) Non-residential mast arm lights have been installed in residential areas. These lights are too high and the lighting too intense for residential use. Trees are often damaged when trimmed back to permit the proper lumination intensity by the high mast arm lighting fixture. 57 Strategies (0-6 Years) 1. Work with the Board of Water and Light to adopt a policy of providing street lights in scale and character with the surrounding land use regardless of the existence of wooden poles. The maximum height suggested for residential lights is 15 feet. 2. Street lighting - Support a city ordinance to establish uniform street lighting. This ordinance should set the standards and procedures for lighting of public streets throughout the city. Provision of street lights should be compatible with the scale and character of the surrounding land use and the functional street classification. Street lights in residential neighborhoods should be placed at a level of no higher than 15 feet. The Board should initiate a program whereby citizens affected by changes in lighting systems would be notified prior to changes being made and allowed to consider alternatives related to style of fixture and type of luminaire. Procedures will be established for notification of residents and selection of luminaire, fixture and standards. In addition, these procedures will allow the selection of luminaires, fixtures and standards which are not part of the Board of Water and Lights regular stock if: (1) over 50 percent of the property owners of a defined area petition and (2) they are willing to pay a special assessment. LIC44Tlff& RAS " IMPofz�TAMT MVU_DPA59 - CF CAWACrEA cP A, CMRANIT} 714$Se FIXTUfZL-.- ' $e texystSTI_--NT %qal- rAcADe 1N az MORE ccammf'OfiA q FIXTUPas MOULD EF- MORE wrW1,1119r- Tb C_(X 4_7"'IN Po-e (9 life Wf;114 Lk4sime . I (Problem 5) Overhead telephone and electric wires are unsightly. Strategies (0-6 Years) 1. Bury all electric and telephone wires in all redevelopment projects and in other areas where feasible. (Problem 6) Combined sewers in various parts of the River Island area overflow and back up into streets and homes during heavy rains. Different areas are affected at different times. In addition, untreated water flows directly from the present'sewer system into the Grand River. The areas where sewers are combined are shown on Map 11. Strategies (0-6 Years) 1. Support the Public Service Department study of the alternative methods of meeting federal guidelines for sewers. These alternatives include separating sewers or developing storm water retention basins. j i �' ' �� � "•�lC lay. � IJattp�l''l�-,�: ' hv� y� lr .•-. �utn••l1 1 �4''r 1i! OF � omil,� I l u uu....rllll �lf�����1 lAlOtU1l gU1Pw� luluft�•• � _ � �•-t� -. i' _� ram_ _ — 71� — - Strategies (7-12 Years) 1. Construct a series of storm water retention basins. Costs associated with storage facilities would be much less than those associated with separation, and incorporated in the Capital Development Program. (Problem 7) There is inadequate access to public restrooms, telephones in the Central Business District, especially after business hours. Strategies (0-6 Years) 1. Increase the number of outdoor telephone booths in public areas such as the North and South Washington Malls, near the Civic Center, Center for the Arts, State Capitol Complex and high utilization bus stops. 2. Provide public restrooms in public areas mentioned above. (Problem 8) According to a recently updated Fire Station Study, Stations 3 and 7 are inefficient and outdated. Strategies (0-6 Years) 1. Support the consolidation of Fire Stations 3 and 7, in the Logan/Birch Triangle. 2. Utilize the existing stations as training centers for residents to learn emergency and first aid techniques. 3. Utilize the existing stations as community centers, senior citizen centers or as some other community facility. (Problem 9) Crimes against property seem to be the biggest nuisance to residents. Strategies (0-6 Years) Support police programs to make citizens knowledgeable of various ways to deter crime such as neighborhood crime watch, bicycle registration, better lighting and similar activities. (Problem 10) Police and criminal justice facilities are experiencing operational constraints due to overcrowded conditions. Expansion of the number of judges, courts, case loads and law enforcement operations have outgrown existing facilities and require more physical space. Strategies (0-6 Years) The city must finalize and adopt the "Criminal Justice Facilities Study" conducted during 1978 which proposes to co -locate the courts and police activities in anew building in downtown Lansing. It is essential that both activities remain in downtown Lansing due to the close proximity to: (1) the center of the community; (2) related legal offices and services; and (3) other established governmental and commercial facilities. 2. Acquire the property required for constructing the new Criminal Justice Facility on RiverStreet, south of Washtenaw. Relocation of existing businesses within the Central Business District must be planned as an adjunct to the acquisition program. 3. Construct the new Criminal Justice Facility. Al ENVIRONMENT AND LAND USE i The environmental assets and problems noted in the following section are perceived situations that have been identified by residents of River Island, planning staff and agency technicians. The environmental issues are directly related to the several uses of land inventoried within River Island. Implementing many of the programs recommended in other functional areas of concern being treated in this plan will have the additional benefit of improving environmental and land use situations within River Island. There are, however, additional specific strategies that would be extremely effective in treating problems directly. Environmental and land use are explained in more detail in Appendix V. programs Relevant Area Environment and Land Use Policies (Natural Environment) Assure the preservation and enhancement of the natural environment by: - Identifying and preserving unique and environmentally sensitive natural features. Protecting improving the Grand River its banks. - and and - Protecting and improving the air and water quality. - Evaluating new development and redevelopment activity to assure compatibility with existing natural systems. (Energy Conservation) Promote energy efficiency and conservation by: - Encouraging energy efficiency in the construction or alteration of public and private structures. - Supporting energy efficient transportation. - Locating new development and encouraging redevelopment where it will utilize existing infrastructure and transportation systems. (Visual Environment) Assure the preservation and enhancement of the visual character of River Island by: - Encouraging development which is compatible with the use, scale and architecture of existing buildings in the area. - Promoting the revitalization of various activity nodes, places of interest, commercial centers and neighborhoods. - Requiring the provision of landscaped open space in public and private new development. - Utilizing design and landscaping techniques for buffering and/or screening • purposes between different land uses, where appropriate. 1 59 (Historic Preservation) Support the preservation and enhancement of the historical and cultural heritage of River Island by: - Identifying and preserving historically significant buildings and places of interest. - Limiting the 'demolition or alteration of buildings of historical or cultural significance. River Island's land use policies provide the framework for the land use issues in River Island. More specific guidelines for the achievement of individual policies are contained within the remaining functional policy components (housing, transportation, etc.) - The diversity of land uses and architectural features in River Island shall be preserved and maintained. - The State Capitol Complex, Central Business District and Industrial Complex shall be recognized and promoted as the economic, financial, political and convention nucleus of the metropolitan region. - The viability of the central area shall be promoted through revitalization activities which encourage multi -use structures and mixed use development to generate activity during both the day and night. - The vitality and integrity of residential neighborhoods shall be supported and strengthened. - Certain areas shall be designated for redevelopment in order to eliminate adverse environmental conditions, improve undesirable land use patterns, accommodate shifts in market demand and improve the visual character of the area. Environmental Assets While many of the assets identified are somewhat subjective in nature, they are an indication that River Island is for the most part a pleasant place to live. 1. The older residential neighborhoods exhibit mature vegetation and large trees and are enjoyable places to live around and see. 2. The Grand River is the dominant physical characteristic within River Island and offers scenic views and recreational opportunities. 3. The residential areas have "character" and "heritage" and are well worth preserving. (This includes architectural styling and design variety.) 4. Riverfront Park and River Street Park are areas that provide clear vistas of the river and create a sense of openess which has been identified as a positive aspect in the central area where so much of the landscape is asphalt and concrete. 5. Much of the River Island has a fairly concentrated layout of types of land use that might be considered detrimental to residential living. Concentrations of these uses suggests that measures designed to mitigate adverse impacts will be easier to apply and less costly to implement. Strategies (0-6 Years) The following strategies are recommended to preserve environmental assets and to maintain the separation of incompatible land use 1. Require screening, fencing and buffering that will separate residential areas from industrial and commercial areas. Map 28 defines areas in need of such treatment. In established situations, provide a forum by which problems can be identified and solutions agreed upon (see Appendix V). AREA RECOMMENDED FOR SCREENING & BUFFERING ® AREAS REQUIRING SCREENING AND BUFFERING MAJOR PARKING AREAS REQUIRING SCREENING AND BUFFERING MAJOR STREETS REQUIRING SCREENING AND BUFFERING TREATMENT (ON SELECTED STRETCHES) 2. Install screening, fencing and buffering along right-of-way of major thoroughfares abutting residential areas. The four major thoroughfares requiring such treatment along selected stretches include Logan Street,1-496 (St. Joseph and Main) and the Oakland/Saginaw one way pair. SAGINAW EXISTING SITUATION POSSIBLE SOLUTION i lrsIY{eSaE �-WV 5M LoULp gE�r F Wr Min WOULD 00 HCl2 DEvEID QDRiaDtb . RIME• PF1H g BUFFER. LDIALD 6E DGYELMD WD WJLSIPLE DWEILRlbs• MID BUPPEn A BW1.T. I 1 1 1 1 3. Amend Zoning Ordinance to require site plan review and approval before building permits are issued for the purpose of converting single family structures over to multiple or office use. Specific areas are shown on Map 32. (Also see Housing Proposals, Appendix 1) 4. Work to enhance attractive views in River Island by a continuing program of tree planting, landscaping and maintenance and by providing public access to the riverfront, especially at street ends and major entrances to the city (such as West Saginaw Point). EXISTING SITUATION POSSIBLE SOLUTION 5. Adopt a Neighborhood Conservation District Ordinance. Suggested areas for application of this ordinance are shown on Map 29. 61 DESIGN & SIGNAGE PROBLEMS - COMMERCIAL AND BUSINESS DEVELOPMENT EJ SUGGESTED AREA FOR APPLICATION OF NEIGHBORHOOD CONSERVATION DISTRICT ORDINANCE Environmental Problems The types of problems presented here are felt to detract from the quality of life within the area and, therefore, merit consideration for treatment in this technical document. Environmental problems are most easily identified when they violate an individual's use and enjoyment of a particular piece of land. As such, while the effect may not be hazardous to health and safety, the nuisance value attached to that problem is sufficient enough to warrant action by the public sector to help minimize the adverse impact. Air, noise and visual problems are associated with other centers of industrial activity including the Sunset Street area, the fly ash disposal site and junk auto storage yard situated at the end of Comfort and Glenrose Streets, the Consumers Power storage MAP 30 yard located off Willow Street, the north Lansing area and the Eckart Street power station (see Map 30). Strategies (0-6 Years) TRAIN 6NDGRrR 1. Install screening and buffering (see Environmental Land Use Asset Strategies). NOISE/POOR VIEWS/ t STRUCK S EQUIPMENT SMELL 'ROM SEWAGE STORAGE YARD TflE TRIVE PLANS #, - NORTH 2. Develop and implement a screening and buffering ordinance that will prescribe RrvER minimum standards for treatment of visual problems in and around new industrial / or commercial areas. Standards could include recommended percent of view to waLow / MIXED USES be blocked, types of screening materials to be used and financial responsibility W. GRAND RIVER INDUSTRTCAMY_ associated with screening and buffering between industrial and commercial and flES10ENTML - �� N045i /USUAL residential land. ECKART STATION NOISE/AIR.., AIR, NOISE, VISUAL POLLUTION CREATED BY INDUSTRIAL ACTIVITIES (Problem 1) Air, noise and visual pollution caused by industrial activities. Paint smells from Fisher Body are evident in the west -central section of River Island. Degradation of water quality in the Grand River creates unpleasant odors, especially during periods of low flow. Odors are especially noticeable in the northwest corner of the area near the sewage treatment plant, in North Lansing near the dam, and in other neighborhoods along the river. EXISTING SITUATION SOLUTION WAEAMW PAINVS CAN MAKE A MW NANTINE+S GD A IDN6 war. NAAYW.• RAwiNE-5 MCUON&Q RtlaEiLlNb SHa.6S cAN I - • ?i 3. Promote the active participation of the Economic Development Corporation and the Lansing Chamber of Commerce to provide leadership and financial aid to businesses cooperating in screening and buffering efforts. 4. Develop and enforce a set of industrial performance standards relative to allowable and/or acceptable levels of air, water and noise pollution. 5. Initiate studies to consider alternative methods of treatment that would be effective in resolving air, noise and visual pollution problems. 1 1 i 1 1 1 1 1 f 1 1 1 1 1 1 1 Strategies (7-12 Years) 1. Study and apply methods and physical improvements that would augment the flow of the Grand River during periods of low water. (Problem 2) Air, noise and visual pollution generated by traffic along major thoroughfares has caused deterioration of housing and general neighborhood appearance. Fumes and vibrations are most noticeable in neighborhoods bordering Oakland, Saginaw, St. Joseph, Main and Logan Streets, but are also in evidence around other residential streets that provide access to and from industrial centers. Strategies (0-6 Years) 1. Provide screening and buffering along major streets to protect neighborhoods. Allocate funds through the Capital Development Program to finance projects. The use of berms, planters, buffer strips, walls, fences, trees and plant materials should be employed to protect residential areas. 2. Adopt and enforce the proposed Truck Route Map. The map will designate the streets trucks will use. Routes through residential neighborhoods will be reduced. 1 a EXISTING SITUATION vide a uw"w.rys C x x ron,xc nra& aiwee� Sn+ a K lqu -� Y �Y EXISTING SITUATION wx twm.wm cowAm MSo 14f4nIL N 4[ffCW�S !@IGftW NMcp .1ZM F °JNUOC fJN CC 9t� g1FN POSSIBLE SOLUTION POSSIBLE SOLUTION 63 Strategies (7-12 Years) 1. Adopt and implement the Logan Corridor "Blend" Plan. Engineering techniques will be used to minimize any adverse impact construction of the highway might have on remaining residential areas along or near the right-of-way. (Problem 3) Visual pollution is related to large parking areas. (See Map 28.) Strategies (0-6 Years) 1. Screening, buffering and landscaping. 2. Initiate studies to find alternative solutions that would help reduce visual pollution. EXISTING SITUATION ' NZDS�StMU- -"eeg AND ALar aF CLEW MU3 Ut'. ON (Problem 4) Poor design of commercial and business buildings and centers is a source of visual pollution in River Island. Garish and poorly coordinated signage in commercial/business areas adds to the problem. The West Saginaw Commercial area, Willow Plaza, North Lansing Commercial area, and the strip development along the west end of Saginaw Street are commercial centers in need of design improvement programs. Visual design and signage problems are also offensive in association with conversion of older homes over to commercial or business use. Conversions have taken place that are sensitive to historic or architecturally significant structures and often are out of character with surrounding residential use (see Map 29). EXISTING SITUATION ^AL 0FROVENNts Ep MPATS r#-K AND vfHEA CawreFIC AL SUILDINbfi ON VOF"DEA Sr. Mfra*W iNuupe POSSIBLE SOLUTION RAMAS WmD fXNEUNO QeRMs 1 (S1.114" . MID tuns rarMrs. Strategies (0-6 Years) 1. Amend Zoning Ordinance to require site plan review (see Environmental and Land Use Assets). C:V 2. Actively promote development or renovation of commercial and business according to a theme that would coordinate design and signage. The Planning Department should meet with businessmen to promote coordinated development and then direct a task force that would help in preparing design criteria for a particular location. The task force would also review design proposals as they relate to the surrounding land use. The Saginaw Point should be visually improved to enhance the image of Lansing at one of its major entrances. 9IGNWE GN f!G !1\Cf4G WMhTIGIE. ADM � CU STAVI JOURNAL MDNC fiLkINE. ��Pa�w� .� tip,. :; � � • •�, _ , f CONCEPTUAL 0EMI 1 � 0 i �w ' 3. Adopt a more restrictive Sign Ordinance related to size, brightness and placement of signs in windows and on or around commercial and business buildings. 4. Implement the proposed West Saginaw Commercial Area Improvement Plan. 5. Designate North Lansing as an historic district under the guidelines of a local historic district ordinance. ' 6. Adopt a Neighborhood Conservation District Ordinance (see Assets section). Land Use f Environmental issues are directly related to the several uses of land inventoried within River Island. (Problem 5) As noted, conflicts in the use of land usually occur where industrial and ' transportation activities come into contact with residential or commercial land. Commercial and office use may also be incompatible with residential use. Areas of conflicting land use in River Island are shown on Map 28. Strategies (0-6 Years) 1. Many parcels in the North Lansing Commercial Area should be rezoned from existing light industrial districts to commercial or residential districts. The present zoning classification encourages development out of character with the historical buildings and parkland located there. Implementation of rezoning would support the concepts of historic commercial district. i' _ — SCREENING LPYJr OI � i Bytis Key: - rn(WL.—e MenFf ;uMnir SCEeL_ a%�� . LU •r�k. P�.nre ,..1 len •A fib. c, r-�JeVD J 85n > PROPOSED SOLUTION 65 9CfCI-n,n1 Plateoigl Opri-W7 QPtion 1 1 1 ", "- Ifsdl pem,�ls _Zu.E—lone+ SANM L 6YautS }ion 13 AL _ �— Usinnqq only .„c , .. .w. 4ptc7, pine , re... w,w, lowe✓ z 9ra� i� yqi pi'fmlt+• 2. Screening buffering. Strategies (7-12 Years) 1. Relocate industrial concerns seeking to expand facilities or remove housing units adjacent to expanding industrial areas. Relocation of industry would have practical application in the North Lansing Commercial Area. In the Sunset Street area it may be more practical to relocate residents experiencing problems associated with industrial activities. Funds for industrial relocation to other parts of the city could be available through acquisition of a Title IX Relocation Grant. 2. Adopt and enforce industrial operating performance standards. (Problem 6) Many lots in River Island are smaller than allowed by the existing Zoning Ordinance for particular zoning districts and open space or yard area is virtually nonexistant in some neighborhoods. Narrow lots create the situation where housing is crowded together and the distance between them is inadequate to provide for parking and other needs. Strategies (0-6 Years) 1. Selectively acquire and remove blighted housing units in appropriate locations and then redesign lot layouts to provide for more open space and distance between homes. The area bounded by Logan, Riddle, Allegan and Kalamazoo Streets in the southwest section of River Island should be rehabilitated with selective clearance. CIRCULATION AND PARKING ' Roads and parking areas constitute a major land use within River Island. Analysis of the circulation system has taken into account the various forms of transportation now in use and their effect on the area and its residents. Assets and problems are ' presented in respect to these various transportation opportunities. Strategies are designed to create safer more efficient travel for area residents and minimize the impact circulation systems may have on adjacent land use. Relevant Area Circulation and Parking Policies Transportation System Promote the development of a safe and balanced transportation system which accommodates all types of transportation by: ' - Developing a major exchange point or terminal in the central area to facilitate getting from one type of transportation to another. - Separating various transportation modes to avoid conflict where feasible. Street System Support the maintenance and improvement of the street system by: - Surfacing unpaved streets. - Provide adequate curb and gutter along all streets with multi -purpose ramps where necessary to provide accessibility for the handicapped and non - motorized vehicles. - Returning one way streets to two way streets where feasible and practical and discouraging additional one way streets through and on the edge of residential ' neighborhoods. - Designating a set of streets adequate to carry the necessary volumes of traffic - while discouraging the movement of through traffic in residential ' neighborhoods. Establish and maintain a heirarchy of streets through the Functional Street Classification (Appendix VII). - In an effortto minimize the environmental impacts (noise, debris) and improve safety in residential areas, non -local traffic should be discouraged by entry restrictions and/or diversions causing inconvenience for through -traffic movements. - Developing a boulevard on Logan Street extending from Kalamazoo Street north to the Grand River with selected street closings to improve circulation and protect adjacent land uses, from'noise and other adverse environmental impacts. (One Way Streets) One way streets are most appropriate in the non-residential areas because they ' tend to attract and serve greater traffic volumes at higher speeds. By eliminating one way streets, where feasible, in residential areas, the quality of the residential neighborhood would be enhanced. 1 66 (Logan) An extensive two year planning and research study has identified the need to reconstruct Logan Street into a facility which can handle greater anticipated traffic volumes more efficiently and safely as part of the regional transportation system. The concentrated location of General Motors and related industries, as well as the governmental, Lansing Community College and Central Business District activities in the central area must be accessible by those who work and utilize these facilities. Public Transportation Encourage and support a safe, efficient and effective public transportation system by: - Identifying potential users in River Island. - Expanding routes, improving frequency of service and increasing bus scheduling. - Supporting continued development of transportation services to the elderly and handicapped by making the system as responsive as possible. - Designing and locating bus stops and shelters so as to prevent crime and promote passenger safety and convenience. - Developing an effective signage system to inform potential riders. Non -Motorized Transportation Encourage the use of bicycles for both commuting and recreation, with an emphasis on safety by: - Supporting the construction of separate bike routes for commuting when major roads are developed or reconstructed. - Supporting the continued development of the hiking/biking routes along the river system. - Improve the present system of bike routes with better route markers. - Connecting major facilities and activity centers in River Island by bike routes. - Providing adequate and secure bicycle storage at appropriate activity centers and buildings when facilities are constructed or reconstructed. Improve and expand the pedestrian circulation system by: - Promoting the separation of pedestrian and vehicular traffic in various activity centers. - Promoting effective signage and signalization which would give pedestrians the right-of-way in designated zones. M VIEW PEDESTRIAN OVERPASS DESIGN - Expanding the mall concept to the 300 or 400 blocks of Washington south of Michigan. - Design alternative sidewalk patterns through the internal portions of residential blocks as part of an integrated system of links to various neighborhood and community activity centers. Parking and Loading Facilities Provide adequate parking and loading facilities to serve the needs of business uses within River Island by: - Applying appropriate zoning code requirements to new, converted and rehabilitated business uses. - Expanding, where necessary, existing parking and loading facilities through both public and private efforts. 67 Provide parking adequate to serve the needs of business uses within the Central Business District by: - Designating parking areas for long terms parkers. - Providing short term parking areas adjacent to commercial uses. Encourage efficient use of parking facilities by: - Developing an effective signage system. - Locating parking facilities in locations appropriate to uses served. - Designing an appropriate parking fee system. Support improved design and maintenance of parking and loading facilities by: - Developing buffering and screening requirements. - Separating loading and delivery areas from parking areas and pedestrian and traffic circulation. Provide adequate parking areas for existing residential land uses in specified areas by: - Allowing on street parking on local and residential collector streets (including between 2 and 5 a.m. where feasible) Circulation Assets 1. Major streets and highways that are capable of carrying large volumes of traffic into the central area (Saginaw-M-43; Logan-M-99 and its extension; St. Joseph; and 1-496). These major regional links serve to keep non -local traffic off of residential streets. 2. Curved residential streets in the area besides being interesting in design, keep speeds down and discourage use of them by through traffic. In the area just east of St. Joseph Park and the area just east of Fisher Body the street pattern is confusing to anyone not familiar with the area; this is a further deterrent for use by through traffic. 3. The public transportation system operating within River Island provides fairly adequate bus service to and from the Central Business District and other centers of employment, shopping and entertainment. 4. The Riverfront Hiking/Biking path is located in the downtown area and planned park improvement programs will serve to extend that facility into the north Lansing area. 5. The routes that exist are a recognition that bicycles can be used as a form of transportation and as an alternate to the automobile. ■ Strategies (0-6 Years) 1. Adopt and initiate implementation of the Logan .Corridor Blend plan. 2. Promote increased bus use through better and improved promotional and advertising campaigns and by providing schedule information at bus stops. Evening and weekend service can only improve if ridership is increased. Expand the financing and construction of bus stop shelters through local, state and, federal assistance to CATA. 3. Implement the city-wide master bike route plan. ICirculation Problems (Problem 1) High volume and dangerous speeds of non -local commuter traffic in residential areas has been identified as a particular problem in neighborhoods situated between the western city limits and the Central Business district, south of Saginaw Street (see Map 31). 1. Define the boundaries of residential areas in which through traffic should be discouraged, and are included on Map 36, Proposed Circulation Plan. This was done by the Planning Department with assistance from the Traffic Department working with citizens in the affected areas. 2. Adopt and utilize the functional street classification guidelines for implementing traffic diverter and restriction improvements. (See Appendix VII) 3. Reduce traffic volumes and speed problems along residential streets by discouraging use by non -local motorists through application of the following: A. Installation of traffic diverters to discourage through traffic and traffic islands and circles to slow speeds. B. Selective street closings. C. Improving or expanding major traffic routes intended to serve the Central Business District. D. Implementation of the traffic diverter concept should include a demonstration project with phased installation and evaluation prior to permanent construction. 4. Adopt and initiate implementation of the Logan Corridor "Blend" plan. (Problem 2) The excessive number of designated one way streets in River Island are confusing to motorists and encourage over use of streets intended to serve local residents. Strategies (0-6 Years) 1. Change the one-way residential streets to two-way traffic as noted on Map 32. W HIGH VOLUME RESIDENTIAL STREETS (Problem 3) There is excessive truck traffic on various residential streets in connection with industrial activities. Problems have been noted on (1) Comfort and Glenrose Streets, in connection with the Sunset industrial area, (2) Verlinden and Michigan Avenue with trucks running between Fisher Body and Oldsmobile, (3) various streets including Walnut and Pine north of Ottawa to the Consumers Power storage yard, and (4) William Street in connection with Oldsmobile. Strategies (0-6 Years) 1. Adopt and enforce the proposed truck route ordinance and map which outlines specific routes outside of residential areas for truck use. 2. Improve Willow -Logan intersection to enable northbound trucks to turn east from Logan. 3. Close William Street to through traffic in the vicinity of Max Street. Strategies (6-12 Years) 1. Extend Melvin Street in the northwest part of the area east to provide access to the industrial activities located at the end of Comfort and Glenrose Streets. Prohibit truck traffic from proceeding down these residential streets once this road is completed. Other route solutions should be investigated. 2. Redesign the Saginaw/Stanley intersection to allow safe two-way traffic for trucks. This will allow trucks to use Stanley both in and out of the Fisher Body plant. (Problem 4) There are intersections in the River Island area where traffic conflicts have been identified due to improper design, signage or sight distance or due to large volumes of traffic. Strategies (0-6 Years) 1. Install clearer signage or striping to designate right-of-way at the following intersections: A. Everett/Kalamazoo B. Everett/Hillsdale C. Capitol/Main D. Grand/St. Joseph 2. Redesign the following intersections to reduce danger and/or confusion (see Map 33): A. Inverness/Ottawa/Verlinden B. Shiawassee/Osborn/ Inverness/Denison C. Oakland/Verlinden D. East Grand River/North Grand River/Willow E. Kalamazoo/Washington (if Kalamazoo becomes two way) F. Kalamazoo/Grand (if Kalamazoo becomes two way) G. St. Joseph/Grand 3. Make use of phased lights or turning lanes to improve movements at (see Map 33): . • ONE WAY STREETS TO BE RETURNED TO TWO WAY SERVICE A. Kalamazoo/Logan B. Main/Logan C. William/Logan D. Olds/Logan E. Willow/Logan 4. Improve sight distances by eliminating on -street parking around intersections or install traffic lights at: A. Shiawassee/Seymour B. Shiawassee/Grand i�uLJuuurJUN11IrFJUV__ '❑©® El 91E;::1=E:1 ❑❑❑❑ ��❑❑❑�� SIG.T0 pROSLE4 BY ON S1 CANNSION OVER NOEl 0❑❑0 s�N:�TT El i vrros�cus uusEo BY ON STREET W. 10■=■■ NONE®■■■I TRAFFIC PROBLEMS 70 (Problem 5) The present capacity of Willow Street, west of the Logan Corridor, is inadequate to handle increasing numbers of motor vehicles. The situation is expected to worsen as industry and residential areas west of the city limits continue to grow. Strategies (0-6 Years) 1. Undertake a feasibility study of widening Willow Street west of Logan, in conjunction with neighboring political entities. 2. Increase transit services to the residential subdivisions along West Willow Street in Lansing and Delta Townships. (Problem 6) Operators of motor vehicles experience difficulty in passage where parking is allowed on both sides of the street, especially Walnut Street and West Grand River near the commercial area and also stretches of Chestnut and Comfort Streets. Strategies (0-6 Years) 1. Limit parking to one side of the street where traffic flow maybe constrained due to narrow right-of-way. Parking Problems (Problem 7) Residential areas with small lots and narrow streets lack adequate parking. Inadequate parking is also associated with multiple and office developments or conversions occurring in structures previously used for single family dwellings . (a) The area bounded by Allegan, Logan, Kalamazoo and Riddle (small lots) (b) The area bounded by Shiawassee, Howe, Westmoreland and Ionia (small lots) (c) The area bounded by East Grand River, Saginaw, the river and Walnut (multiple and office conversions, small lots) (d) The area bounded by Saginaw, Walnut, Ionia and Logan (multiple and office conversions, small lots) (e) The area bounded by Kalamazoo, Walnut Street, St. Joseph and Logan (multiple and office conversions, small lots) (f) The area bounded by Kalamazoo, River Street,)-496 and Grand Avenue (multiple and office conversions, small lots) Strategies (0-6 Years) 1. Investigate the possibility of providing centralized residential neighborhood parking areas where needed. Vacant sites provided by selective acquisition and clearance of substandard housing could be paved and used as a neighborhood parking area. 2. Allow on -street alternate side parking from 2 to 5 a.m. for residents in specified areas or permit sticker system. (Problem 8) Non-resident commuters park their vehicles in neighborhoods adjacent to Lansing Community College, Lansing Business Institute, the Partington Center, Fisher Body, St. Lawrence Hospital and St. Joseph Park. Strategies (0-6 Years) 1. Promote higher utilization of public transportation to reduce the need for parking in residential areas around the Central Business District. 2. Institute an experimental neighborhood parking sticker program for appropriate neighborhoods, especially the Bartlett, Carey and Westmoreland area and the South Genesee, Shiawassee and Forbes area. 3. Provide the personnel necessary to enforce existing on -street parking ordinances on affected streets. 4. Provide signs directing St. Lawrence visitors to city parking lot on Westmoreland north of Saginaw. 5. Improve parking lot at St. Joseph Park and install signs to show where it is. Strategies (7-12 Years) 1. Consider construction of additional parking facilities inclose proximity to Lansing Community College, the Lansing Business Institute and the Partington Center, so that students driving cars to class might be accommodated. Additional parking close to campus will reduce the necessity for students to park in already overcrowded neighborhoods. (Problem 9) Lack of clear signage for public parking. Several different types of signs indicate public parking which is confusing. Also, some ramps are not clearly marked as to whether they provide daily or monthly parking. Strategies (0-6 Years) 1. Develop clear and consistent signage around public parking areas, primarily around the Central Business District. (Problem 10) Too much land surface area is used for parking in the downtown area. Almost ten percent of the total land area in the Central Business District is dedicated to that use. The need is to develop land used for parking for more economically productive use while at the same time providing for the parking demands associated with business and industry located in and around the Central Business District. STRATEGIES (0-6 years) 1. Investigate the potential for periphery parking lots for Central Business District employees with a shuttle service to free up close -in spaces for shoppers. 71 2. Promote higher utilization of the public transportation system or car pooling to reduce the need for providing parking spaces for private automobiles. Strategies (7-12 years) 1. Consolidate parking facilities to reduce the amount of land in the central area devoted to parking. Consolidation would create more ramp space and free up valuable downtown land for a more productive use. 2. Work with the State of Michigan and Oldsmobile to develop permanent parking ramps along Logan Street between Allegan and Kalamazoo to keep traffic from penetrating into the central area through residential areas. This would include the shuttle service, recommended in the South Washington Square and Environs Study, to be extended to Butler Street along Allegan and Washtenaw. A similar shuttle could be arranged along Logan to Oldsmobile. ES] DF P/M I115 BC Ix%ow 6Y ?Fyq'ING A Rl7 VasAND FPJIWA,, TiM 'RIM PiNSED PWhl11-- HANK t*WU Be M4SAN6ED pl N,gUFAL (Problem 11) Inadequate loading space around industrial and commercial areas causes blockage of public streets, alleyways or parking areas. Areas affected generally include the North Lansing Commercial Area, the West Saginaw Commercial Area, and the Central Business District, especially around the Commerce Center Building, along Kalamazoo and Michigan Avenue and along the Washington Mall. ' Strategies (0-6 years) 1. Designate specific hours when loading and unloading cannot occur, particularly i' during the peak hours of 7 to 9 a.m., 12 to 1 p.m. and 4 to 5 p.m. 2. Enforce law prohibiting blockage of public right-of-way due to loading or unloading activities. Work with industry in North Lansing to provide alternative space for vehicles waiting to be unloaded. 3. Adopt and implement the West Saginaw Commercial Area Plan. EXISTINr; RITI mTIM] L POSSIBLE SOLUTION 1 72 Strategies (7-12 years) 1. Design and implement adequate loading and delivery facilities at various locations in the Central Business District (i.e. Commerce Center, the Mall area). Public Transportation (Problem 12) Inadequate evening and weekend service. Most buses stop running at 9 p.m. on weekdays. There is limited Saturday service and no Sunday service. Strategies (0-6 Years) 1. Promote increased bus ridership through application of the following: A. Promotional and advertising campaigns. B. Posting of schedule information at bus stops. C. Construction of additional shelters throughtout the city. Evening and weekend service can be improved if ridership is increased to pay for service 2. The city should assist the local transit authority in the financing and construction of shelters to encourage increased use during inclement weather. 3. Investigate funding sources for additional maintenance and landscaping of bus shelters. (Problem 13) Lack of coordination between types of transportation. Inter -city and intra-city bus stops are five blocks apart. The train station is in East Lansing and there is no provision for the storage of bicycles at transfer points to other types of transportation. Strategies (0-6 Years) 1. Support the creation of Intermodal Transportation Terminal on Grand Avenue between Washtenaw and Kalamazoo to facilitate coordination among transportation types. This would reduce the conflict between cars, pedestrians and buses presently existing at the Michigan/Grand transfer point. Pedestrian Traffic (Problem 14) Pedestrian/motor traffic conflicts have been identified along Saginaw Street in connection with the commercial centers. The street area and the sidewalk are not separated well enough to give pedestrians a feeling of security when walking. Pedestrians also have difficulty crossing Saginaw Street (and Oakland) due to the distance between marked crosswalks and large volumes of vehicular flow. Strategies (0-6 Years) 1. Separate pedestrian/motor traffic flow along Saginaw Street through placement of street furniture, trees or planters between the sidewalk and the vehicles right- of-way. Investigate the possibility of providing additional crossing areas and define them with painted lines. m ilk as -C_r _ fm m �a-r km MMMI MUTT. i FLOWER ew ulM Tg6E N MM qurgR 6R4fl c9 SL�ex ARA»IK5 (Problem 15) There is a lack of understanding or regard by motorists in respect to designated crosswalks that give pedestrians the right-of-way when crossing streets in the Central Business District. Strategies (0-6 Years) 1. Enforce pedestrian right-of-way laws. Particularly where streets cross the North Washington Mall. Install warning signs closer to the crosswalks and make them more noticeable. (Problem 16) Pedestrians have difficulty walking in neighborhoods where sidewalks are in disrepair and trees and shrubbery extend into the pedestrian right-of-way. Strategies (0-6 Years) 1. Provide for systematic inventory and replacement of sidewalks in River Island (as outlined in the Public Service Section of this plan). 73 2. Inform property owners of their responsibility to keep the pedestrian right-of-way clear. Provide for clearance or trimming of plant materials when that responsibility rests with the city. The Parks Department should be responsible for maintenance. a "mR. rmh» 1W "Im M WMr&wW' mi. PM %.40c cmzfn C"'M arorz wl feels n cvrm. Bicycle Routes/Paths (Problem 17) There are few designated functional bicycle routes within River island. Bike routes that are more direct to major activity centers are increasing in demand. Also, there is no consistent, safe means for bicycles crossing city bridges. Strategies (0-6 Years) 1. Implement the city-wide master bike route plan. (see Map 34) 2. Separate bike routes from motorists right-of-way on newly constructed or reconstructed major thoroughfares and on all city bridges. (Problem 18) Existing bicycle routes are poorly marked and there are no defined areas for bicycles to operate in without interference from automobiles. Strategies (0-6 Years) 1. Clearly mark designated bike routes with signs and paint yellow lines along the right-of-way to make motorists and cyclists aware of the separation that should be maintained between them. 2. Separate bike routes from motorist right-of-way on newly constructed or reconstructed major thoroughfares and on all city bridges. APE., FOP WRU"A. JlKE JPML. - 4G3L;lM (Problem 19) There is no way for a bicycle rider to take the bus. Interchange between these modes is difficult. Strategies (0-6 Years) Provide some buses with the capability of carrying bicycles. (Problem 20) There is a lack of secure bicycle storage and parking facilities within River Island. Many more persons would seriously consider using bicycles as an alternate means of transportation if they had some place to store their vehicles. Strategies (0-6 Years) 1. Require bicycle storage areas at all municipal buildings, community facilities, parks and muncipally funded projects. 2. Amend the city codes to require bicycle parking and storage in all business, office and commercial districts. (Problem 21) Bicyclists ignore traffic laws in respect to vehicular movement, turning and signaling laws. Strategies (0-6 Years) Enforce traffic laws for bicyclists and provide education in schools and for adults. The Police Department would be responsible for this. 74 uuu CIRCULATION PATTERN COLLECTOR STREET MINOR ARTERIAL MAJOR ARTERIAL ONE-WAY STREETS River Island Area Comprehensive Plan PROPOSED CIRCULATION n NEW TRAFFIC CONTROLS LEFT TURN PERMITTED TRAFFIC SIGNAL WITH GREEN ARROW DIRECTION SIGNS "NO THRU TRAFFIC" SIGNS TRAFFIC DIVERTER BARRICADE OR PROHIBIT WESTBOUND TRAFFIC "DO NOT ENTER, 3-6 P.M. S 1-3 A.M." SIGNS RIGHT TURN ONLY REMOVE TRAFFIC SIGNAL LANSING PLANNING DEPARTMENT OCTOBER, 1978 - - - - COLLECTOR STREET MINOR ARTERIAL MAJOR ARTERIAL a� RF55 ��•:�:�:�:�: cgoss -IT - - R.- = LOW DENSITY RESIDENTIAL (UP TO 6 UNITS PER ACRE) UZ MODERATE DENSITY RESIDENTIAL (6-20 UNITS PER ACRE) am MEDIUM DENSITY RESIDENTIAL (20-50 UNITS PER ACRE) 6-0 HIGH DENSITY RESIDENTIAL (OVER 50 UNITS PER ACRE) COMMUNITY FACILITY PROFESSIONAL OFFICE GOVERNMENT OFFICE PARK AND OPEN SPACE COMMERCIAL/BUSINESS INDUSTRIAL PARKING Jo.I� ILLOW Tj _ _ ___ ❑�a ...... R.0 U ❑ ❑I —EFORD -F F] F.❑il� LL ?aoao �K�c a� - 4? o _ ❑o River Island Area Comprehensive Plan PROPOSED LAND USE TO 1990 N LANSING PLANNING DEPT. OCT.78 GENERAL PROPOSALS FOR PHYSICAL DEVELOPMENT This chapter consists of the land use and circulation maps for the River Island Area. It represents the "Blending" of the three district plans prepared within the District Committees. Proposed Land Use and Circulation Patterns are shown on Maps 34 and 35. These proposals reflect policy established by the River Island Policy Committee at the initial stages of this planning process. The pattern of development shown would have reasonable expectation to occur within the next 12 years if the recommendations made in previous sections of this plan were adopted and ' implemented. Basically, land use and circulation patterns shown here are already established. The proposals do, however, show some major changes expected to occur. These will be discussed below. An attempt to stabilize and guide growth and development for the various uses of land found within the River Island area has been the major goal of this plan. The proposals offered here will serve to accomplish those ideals. Land Use (Map 34 ) This plan is predicated on the concept that all of the types of the land uses in River Island remain and/or expand. It is the feeling of staff and citizens that the diversityof uses is a positive aspect of living and/or working downtown. 1. Residential One major feature of this new plan, however, is to delineate residential areas where neighborhood services and amenities must be provided. - Residential development which is largely single family in character should be retained west of Logan Street and north of Oakland east of Logan. -Control development of residential densities and housing type according to the present growth pattern. Creation of higher density in the Oakland/Saginaw Corridor is in keeping with city-wide housing policies and accommodates demand created by the CBD and Lansing Community College. The provision of site plan review should serve to minimize problems for surrounding single family 1 units and control growth to some extent. The emphasis on neighborhoods can also be seen in the strong affirmation of the need to construct new housing units in the central area (i.e. Capital Commons) and to preserve and rehabilitate existing stock. - Non-residential uses such as office, commercial and industrial will be restricted from intruding into residential neighborhoods. Spot and strip development of business and industry will be controlled. - Traffic circulation will change to avoid eroding the residential neighborhoods. - Screening and buffering should be extensively used to preserve residential properties and used between developments with generally incompatible uses. 75 2. Non -Residential Other major land use shifts are proposed for the following areas. - Develop the completed fly ash landfill area as parkland. Parkland development along the riverfront is an expressed policy of the city. Since landfill sites are not suitable for intensive development for a number of years following completion, parkland development would be a reasonable alternative to consider. Such development is suitable use of land located within the floodplain. - Industrial expansion in the Olds Avenue area within the next 10 years is expected to occur to Westmoreland between Olds and Main Streets and along both sides of Olds Avenue to Industrial Welding Complex. The ultimate industrial expansion is anticipated for the entire area south of 1-496 sometime beyond the 10 year period of this plan. - Allow expansion of St. Lawrence Hospital. Representatives of that facility have expressed an interest to expand sometime within the next 10 years. Specifics are not available at this time, but such expansion has been shown on the map. - Other major features include endorsements of: 1) the revitalization of downtown through the South Washington Mall and Environs Study Plan; 2) the Riverfront Development Plan; 3) the speedy development of the Capitol Complex in downtown; 4) new reinvestment and historic preservation for North Lansing. 3. North Lansing The major land use changes are located in the North Lansing Commercial Area. A summary of those proposals are as follows: - Concentrate commercial development on Grand -River Avenue and Turner Street (between Grand River and Clinton). Establish a strong, economically viable historic commercial district. - Reduce and eventually remove industrial intrusions in and surrounding the historic commercial district. The industrial uses are poor "neighbors" for the historic commercial district and the riverfront parks. They create noise and visual pollution and generate truck traffic which block certain streets in the area. - Rehab existing housing east of Center Street and develop new housing both north and south of the commercial district. In the future, it would be desirable to have a larger resident population to support and use the commercial establishments and the park developments. - Develop parking lots around the commercial area and designate potential locations for additional parking, if needed. The conflict between pedestrian and auto traffic in the historic commercial area should be reduced to provide a more pleasant environment. As the commercial district becomes more popular and the fish ladder is developed, additional parking may be needed. - Establish a strong pedestrian link between Buchard Park and Dodge Park through the historic district. People using the riverfront park system should be brought through the historic commercial district to provide the opportunity for people to see the historic district and patronize the businesses. Circulation (Map 35) The emphasis on residential development preservation can be seen in the recommendations to: 1) return several streets to two directional traffic; 2) direct non - local traffic to specific streets on the periphery of neighborhoods; and 3) locate state employee parking adjacent to a major thoroughfare (Logan Street). These solutions will also provide direct and traffic design effectiveness in serving the Central Business District, State Complex and General Motors Industrial Complex. - The most dominant change involves the adoption and implementation of the Logan Corridor "Blend" plan as shown. A minor direction change has been proposed for Pine and Walnut Streets, north of Oakland Avenue. Two-way traffic is proposed for Shiawassee, Ionia and Kalamazoo. - Through traffic should be routed around the neighborhood west of Logan (Planning District 1), as much as possible, especially on east -west streets (Michigan, Ottawa and Allegan are major considerations). A demonstration project should be used to test the traffic diversion concept and include an evaluation of effectiveness and phase installation prior to permanent construction. - Interior traffic in residential neighborhoods should be slowed to a safe speed, especially on north -south streets. - Truck route ordinance and Functional Street Classification Guidelines should be adopted and implemented starting in River Island. - One other traffic direction change is proposed for Turner Street in the Historic District between West Grand River and Clinton Street to one way northbound. Also, left turn movements are proposed for the intersections of East North at Turner and North Grand River at Willow. "No Thru-Traffic" signs should be installed to protect the area in the vicinity of Willow and Washington. 76 IMPLEMENTATION The strategies outlined in this plan are intended to effectively guide growth and development within River Island over the next twelve years. Each strategy has been designed to treat one or more of the assets and/or problems identified by citizens and staff during the planning process. Citizens participating on the three district levels were asked to prioritize strategies within each functional area according to personal perception of need and according to personal goals and objectives for development in their neighborhoods. The results of that prioritization are included in the next chapter. It will be necessary for city decision -makers to also decide upon priorities for action, not only within functional areas but also between them. The proposed strategies require the expenditure and/or utilization of limited resources over a period of time. Implementation of these strategies will require a coordinated effort to assure that these resources are better and more evenly distributed or allocated. When we refer to allocation of resources we have recognized the need for decision -makers to develop a framework by which priorities can be made, and through which programs can be more effectively administered and ultimately carried out. The purpose of this section is to outline for decison-makers several systems of implementation that will be utilized in the application of this plan. It should be noted that implementation requires continuous cooperation and understanding between public, private and citizen groups so that actions taken by any one interest will coordinate well with the overall concept of development designed for River Island. Implementation of strategies must be carried out within the parameters of existing systems. Participation by various public agencies, private interests and River Island residents will be necessary to accomplish that implementation. Categories and Systems Growth and development within River Island can be directed and controlled by implementing the proposed strategies through use of existing legal, administrative and budgetary systems. Strategies outlined in this plan have been structured to fit into one or more of the following categories: 1. Strategies that make use of public expenditures or public investment. 2. Strategies that rely on regulatory or police powers of local governmental agencies. 3. Strategies that provide incentive or encourage involvement or financial investment by private interests, including River Island residents. 4. Strategies that rely on planning review. 5. Strategies that rely on action and involvement by individuals or groups in the private sector. 77 1. Public Expenditure and Investment Land use patterns, physical improvements and private development in River Island will be influenced by expenditures made by the city for construction, acquisition or improvement of public facilities. Public facilities include public buildings, land, roads, utilities and fixed equipment (Example: fire fighting equipment). Capital improvements will be financed through reservation and budgeting of available funds in the Capital Development Program (CDP). The CDP for Lansing covers a six year planning period and sets a project priority rating for each development or acquisition proposal made by city departments. Proposals are funded according to priorities established by that rating system. First year expenditures for facilities are included in the annual city budget and are regarded as the capital development section of that budget. It is customary to prepare a capital development budget and capital development program annually, revising the entire program and adopting the capital development budget each year as part of the regular operating budget. 2. Regulatory Powers Many strategies prepared for River Island rely on adoption of new ordinances or amendment of existing ones. Ordinances are administered through and enforced by various municipal departments and will control private development and/or direct government activities toward maintenance of established goals and policies. Several codes and ordinances are used for implementation. They are detailed pieces of legislation which are intended to carry out the proposals in this plan. A list of the major codes and ordinances that will be used to implement the River Island Plan includes the following: A. Zoning Ordinance B. Subdivision Regulations C. Building Code D. Housing Code E. Special or Historic District Preservation Ordinances (proposed) F. Other ordinances related to maintenance of health, safety and welfare within the community and ordinances dealing with aesthetic or urban design principles. 3. Incentive Actions Strategies have been recommended to provide incentives for sound development. Several strategies have been formulated on the premise that investments made through the public sector will encourage additional private investment. Similar rationale is presently being used for development in the Central Business District, in the West Saginaw Commercial Center, and in North Lansing. Proposed incentives included the following: A. Tax concessions B. Loans and grants (federal, state, local) C. Improvements made to public facilities D. Legislative changes (tax laws, enabling legislation, etc.) at the federal, state and local levels of government. 4. Information, Coordination and Referral Policies have been adopted by the city that should serve to point the direction of city- wide growth and development for years to come. River Island policies have been formulated in respect to these broad and general directives. Adherence to these polices when reviewing growth and development proposals will serve to provide more assurance that coordinated efforts will be maintained between various public agencies working at the local level. Coordination of development programs has always been a problem in government and the problem is compounded when numerous governments and the private sector are involved. The Planning Department should be concerned also with providing a common basis of information that would serve to achieve coordinated action between levels of government and the private sector. By requiring mandatory referral and planning review for every development proposal, coordination would be easier to maintain. Strategies developed for River Island will be most effective when developed and applied in support of one another. 5. Private Sector Implementation of many strategies designed for River Island will depend on the involvement or participation of various private organizations and interests of particular importance. Here are the following: A. Citizen, private or quasi -private entitites such as the Economic Development Corporation who are involved in program planning for economic development within the city and who are involved in the acquistion and disbursement of federal sources of revenue provided for such development. B. Citizen, private or quasi -private groups organized for some special purpose including historic preservation, code enforcement, neighborhood conservation, rehabilitation of neighborhoods (CDC) and others. C. Volunteer groups and/or workers. D. Joint agreements between government and local banks or lending institutions, where the private sector provides their expertise and processing machinery and the city guarantees loans, and/or write down interest for housing or industrial improvement. The lending institutions should utilize more of their assets and ease the financial barriers to maintain or improve housing/business areas. E. Joint development and improvement projects by major local industrial corporations and local government (such as a visitor center or parking facility). F. Citizens committee of the Planning Districts 78 pW00f�'lOVO� PRIORITIES This section includes those elements which citizens identified as priorities. These are divided by district. The final priorities section will reflect the recommendations of the Area Policy Committee in a process of eliminating, blending, and ordering these elements. The purpose of the priorities section is to provide technicians and politicians with a sense of what citizens see as the most important strategies, and should be used to assist in the development of work programs, budgets and overall policy for the city of Lansing. District 1 - Citizen Priorities The following are the priorities identified by the persons attending the May 16,1978 district meeting. The categorical area is listed first according to priority and then the most important strategy within that area as seen by the Committee is listed immediately after. Housing 1. Develop programs to change the practice by absentee landlords who allow homes to deteriorate. Transportation 1. Eliminate the circulation of through traffic in the neighborhood. Commercial/Industrial (Economic) 1. Promote the construction of opening of a full service grocery store nearby. 2. Prohibit industrial related activities and operations from intruding into the neighborhoods. Community Facilities 1. Increase the utilization of neighborhood schools. Environment and Land Use 1. Develop programs to improve the housing appearance and conditions throughout the district. Public Service 1. Improve garbage pick-up within the district through greater frequency and expanding the items to be collected. District 2 - Citizens Priorities The identification of problems, assets and strategies can be made more effective as a decision and policy making tool if priorities can be developed to indicate which. programs, and projects should receive first consideration. Upon completion of the initial draft of the District 2 Plan, the citizens committee met and developed tentative priorities in each functional area according to their perception of the needs, funds and manpower available. Below are listed the three top strategies in each category. (Note: These are only the three most important and do not, in many instances, include all of the recommendations.) 79 Housing 1. Systematic Code Compliance Programs 2. Housing Assistance Programs 3. Selective Clearance Business/Commercial West Saginaw Area 1. Improve circulation and parking on south side 2. Develop grocery and hardware stores Central Business District 1. Adopt Phase I of South Washington Square and Environs Study to celebrate Lansing as the state capitol of Michigan. 2. Park and shop in mall with attended parking and free parking in ramps for two hours also attended 3. Encourage a new full service department store Office Uses 1. Create a site plan and design review process 2. Create office zones of differing densities 3. Ordinance regulating signs State Capitol Complex 1. Update Capitol Complex Master Plan 2. Joint review of architectural plans for new buildings 3. Encourage cooperation; better relations on all projects between state and city Industrial 1. Direct employee traffic to major streets and out of residential areas 2. Adopt truck ordinance 3. Heavily landscape Main Street area Community Facilities 1. Return Ferris Park to a park 2. Adopt more frequent maintenance schedule for parks 3. Support Center for the Arts. Continue to develop river according to the Riverfront Plan Environmental Conditions 1. Develop program of landscaping patterns to enhance the visual appearance of entrances to the district 2. Adopt a strict sign ordinance 3. Adopt screening and buffering ordinances Circulation Streets 1. Use Capitol, Grand, Allegan, Ottawa, Pine and Walnut as designated major streets to keep through traffic out of neighborhoods 2. Return Shiawassee, Ionia, Washtenaw and Kalamazoo to two-way streets 3. Regular maintenance of alleys Parking - Short Range 1. Centralized neighborhood parking lots in residential areas 2. Allow on -street parking 2 a.m. to 5 a.m.. 3. Higher utilization of public transportation Parking - Long Range 1. Work to develop ramp at Logan, Allegan, Butler, Washtenaw for state and Olds use 2. Periphery lots around CBD for employees with shuttle service 3. Consolidate parking facilities into ramps Public Transportation 1. Adequate maintenance and landscaping of bus shelters 2. Support new transportation terminal in 300 block of South Grand 3. Increased CATA service on evenings and weekends Pedestrians 1. Enforce right-of-way laws for pedestrians in crosswalks Bicycles 1. Require public buildings and apartments to provide on -site bicycle parking and storage facilities 2. Provide bike path along North Washington Mall 3. Provide striping on streets to clearly indicate bike lanes and separate bike lanes crossing bridges. Public Services Streets, Sidewalks, Curbs 1. Place street name signs at same place at each intersection 2. Institute regular schedule of sidewalk and curb repair 3. Enforce city code to regulate clear display of street address numbers Utilities 1. Bury utility lines 2. Street lights 3. Increase number of outside telephone booths in public areas Police and Fire 1. Support programs of crime prevention 2. Consolidate stations 3 and 7 3. Utilize old stations for first aid and CPR training centers El District 3 - Citizen Priorities Citizens participating on the District 3 Committee were asked to list in orderthe top 3 proposed strategies they felt would be most effective in solving problems identified in this plan. The following list presents the consensus opinion concerning that prioritization. The list is divided according to functional area. Housing 1. Adopt an All Sales Ordinance 2. Institute a concentrated and systematic code enforcement and financial assistance program. 3. Encourage tax law changes that will allow tax credits, rebates or deductions for improvements made to housing units. 4. Develop an ordinance that will require that minimum standards of maintenance and security be met by owners of vacant or damaged structures. Economic - Business/Commercial/Industry 1. Implement the West Saginaw Commercial Area Public Improvements Plan. 2. Develop a local ordinance that would provide for the creation of historic preservation districts and designate the North Lansing Commercial Area as an Historic District under its protection. 3. Utilize state legislation that would allow the city to adopt a tax abatement plan that would encourage commercial redevelopment and investment. Public Services and Community Facilities 1. Develop a more systematic program of park maintenance. 2. Implement the proposed generalized Waterfront Development Plan. 3. Construct small parks on properties that have been acquired and cleared (tot lots. Environment and Land Use 1. Amend Zoning Ordinance to require site plan review and approval before building permits are issued for construction of multiple or office uses in any zoning district and before conversion of a residential structure over to that use takes place. 2. Rezone parcels in the North Lansing Commercial Area from the existing light industrial district to commercial or residential districts. 3. Selectively acquire and remove blighted housing units and then redesign lot layouts to provide for more open space and distance between homes or apartments. Circulation and Parking 1. Limit parking to one side of the street where traffic flow may be hindered due to narrow right-of-way. 2. Redesign problem intersections and implement needed changes. 3. Adopt and enforce the proposed Truck Route Map. 4. Clearly mark designated bike routes with signs and yellow lines painted along the curb. 1 0 1 1 1 ul E APPENDICES I 1 i { r r 11 11 I APPENDIX I HOUSING ASSISTANCE PROGRAMS/PROPOSALS EXISTING PROGRAMS Housing financial assistance programs available to Lansing residents are listed below. The programs are funded under State and Federal guidelines and many are targeted into specific areas of the city. Others have city wide application. Such programs are useful to promote rehabilitation and maintenance of housing units in general. New Housing Construction or Substantial Rehabilitation A. Section 235 - Homeownership assistance for lowand moderate families; Federal Housing Administration insures mortgages and reduces interest payments for new and rehabilitated homes for low and moderate families. Eligible families must have an adjusted income which does not exceed 95% of the area's median income. B. Section 221 (d) (3) and (4) - Multi -family rental for low and moderate families; Federal Housing Administration. Mortgage insurance to finance construction or substantial rehabilitation for rental or cooperative multi -family housing for low and moderate income households. C. Section 202 - Direct loans for housing for the elderly and handicapped; Federal Housing Administration, Michigan Housing Development Authority, direct loans to private, non-profit organizations to finance rental or cooperative housing facilities for elderly or handicapped housing. Households of one or more persons, the head of which is at least 62 years old or is handicapped, are eligible to live in the project. Rehabilitaion Assistance A. Community Development Block Grants - City of Lansing, Housing and Redevelopment Department. Financial assistance to property owners in selected neighborhood strategy areas; assistance includes rebating a portion of the total financial counseling and refinancing. Property owners in Neighborhood Development Areas are required to make additional improvements to comply with rehabilitation standards above the housing code. B. Section 312 - Rehabilitation Loans - City of Lansing, Housing and Redevelopment Department and the Detroit HUD Office. Direct 3% interest loans to finance rehabilitation in Neighborhood Strategy Areas. Loans may not exceed $25,000 per dwelling unit. C. Section 518(b) - Compensation for substantial defects; Federal Housing Administration. The Federal Housing Administration reimburses homeowners with certain FHA insured mortgages for critical defects that existed at the time the mortgage commitment was made if a proper FHA inspection should have disclosed them. Owners must have purchased homes between August 1,1968 and August 3, 1976. D. Section 8 - Substantial rehabilitation assistance; City of Lansing, Housing and Redevelopment Department, and Federal Housing Administration. Rent supplements for owners of multiple family housing in the Westside Neighborhood Strategy Area who rehabilitate units occupied for low and moderate income families. Assists owners in the rehabilitation of rental property by providing guaranteed rental income which acts as a financialincentive to encourage investments in the residential structure. An application for this program has been submitted. E. Title I - Home improvement loan insurance; Federal Housing Administration and local lending institutions. Insures loans to finance major rehabilitation and repairs on homes of up to $10,000, and apartments up to $25,000. Lenders determine eligibility and process loans. Housing Improvement Program and Neighborhood Improvement Program (HIP/NIP) - Michigan State Housing Development Authority. Although the program guidelines have not been completed, reduced interest loans and grants will be available to all Michigan property owners with incomes of $17,500 or less. The Neighborhood Improvement Program will require additional rehabilitation assistance and public improvements in the target area. The city of Lansing will prepare an application for this program as soon as guidelines are completed. G. Emergency Repair Assistance - Ingham County Department of Social Services. Provides homeowners receiving Aid to Dependent Children (ADC) and Social Security (SSI) with $500 allowance for home repairs such as plumbing, roofing, furnace and window repairs in an emergency. H. Winterization Program - Capital Area Community Services. Repair of broken windows, patching roofs, walls, cracks and joints, install weather stripping and insulation, storm doors and windows of all owner occupied homes by SSI recipients and/or low income families (as defined by the federal poverty guidelines for the region). Purchase Assistance A. Section 203(d) and (i) - One to four family home mortgage insurance. Local lending institutions and Federal Housing Administration. Federal mortgage insurance for local commercial lenders against loss to encourage them to make loans up to 97% of the property value of terms up to 30 years. Anyone may apply. B. Section 221(d)(2) - Homeownership for low and moderate income families. Local lending institutions and Federal Housing Administration. Provides mortgage insurance for lenders against loss for low cost, one to four family housing. Maximum insurable loans of up to $25,000 are available for owner occupants with incomes of up to 95% of the area's median income. C. Experimental Financing - (Graduated payment mortgage) - Federal Housing Administration and local participating lending institutions. The Federal Housing Administration insures a limited amount of mortgages on an experimental basis to allow homeowners to pay smaller monthly payments initially and to increase their size gradually over time. Full payment plans are available, varying in duration and rate of increase. PROPOSED ORDINANCES All Sales Ordinance An all sales ordinance would require a house that was going to be sold to be inspected for code violations. A list of code violations would be made available to prospective buyers. In addition, for owner occupants, those violations that are health or safety related would have to be repaired prior to occupancy of the structure. It would be up to the seller and buyer to work out who is to make the repairs. The All Sales Ordinance would also have a component dealing with rental properties. A rental property that was being sold would have to meet all code requirements. In addition, all rental properties would be inspected bi-annually to ensure they stay up to code. Bi-annual inspection would reduce the possibility that rental units operated by absentee owners would be allowed to deteriorate to a substandard condition. Inspections and resultant improvements in housing at time of sale would serve to encourage private lending institutions to provide home mortgages or home improvement loans. Responsibility for inspection and administration rest with the Building Department. Details must be worked out to determine: (a) who will initiate the process, (b) how the process will be administered, (c) how the process will be enforced. Requiring private lending institutions and real estate firms to report housing sale agreements would assist the Building Department in carrying out the objective of the Ordinance. 81 q Neighborhood Conservation District Ordinance The city should adopt a Neighborhood Conservation District Ordinance to allow for formal designation of neighborhoods where architectural designs are considered unique and worth preserving. The purpose of such a district would be to allow for development of standards that would promote cooperative efforts in respect to maintaining homes in their basic original form regardless of the intended improvement, alteration or use of the building. An organization made up of residents of that neighborhood would be responsible for the following: A. Initiating the process B. Developing design/preservation associated with structural alterations or improvement of interesting structures. C. Reviewing plans for alterations or improvements. The Zoning Division of the Planning Department would undertake site plan review for all proposed development in support of design standards established by a district. The Building Department would be charged with enforcement of the ordinance through control over issuance of building permits. Vacant Structures Ordinance Develop an ordinance that will require the minimum standards of maintenance and security be met by owners of vacant or damaged structures. Make periodic inspections to ensure that ordinance requirements are being kept and make violations a ticketable offense. Investigate means of providing financial assistance to owners of damaged or vacant properties who may have financial difficulty. Such structures should be repaired as soon as possible and made suitable for occupancy. In dangerous situations, the city should proceed with condemnation proceedings to remove the hazard. Neighborhood Appearance Ordinance The creation of a new approach to housing code enforcement in the city of Lansing aimed at the exterior appearance of residential structures. Such an ordinance would require minimum performance standards for conditions on the residential parcel and the exterior of the structure. LEGISLATIVE CHANGES/AMENDMENTS Tax Law Changes Encourage tax law changes that will allow tax credits, rebates or deductions for improvements made to housing units. Tax advantages offered by federal, state and local governments would encourage home maintenance and repair. State Enabling Legislation Recommend changes in State Enabling Legislation that would allow local entities to adopt housing rehabilitation programs through use of money from the general fund. The ability to use such funds would enable the city to more independently deal with its housing problems and place less reliance on sources of revenue that fluctuate from year to year. Service Areas Amend the zoning code to require a screened and/or fenced service area for multiple dwelling units located in an accessible location without reducing the number of parking spaces. 82 Mixed Use Amend zoning ordinance to allow a mixed use zoning category. This is to promote W more efficient usage of land and to facilitate structures which accommodate both residential and office uses. Site Plan Review Amend zoning ordinance to require site plan review by the Zoning Division for development of housing associated with zoning changes and require such review by the Planning and Building Departments before conversion of housing units is allowed for multiple or office use. Standards in the review should include but not be limited to: A. Minimum green space requirements. B. Maximum allowable paved surface area. C. Placement of signs and control over size. D. Preservation of residential character (where appropriate) by maintaining or rehabilitating the residential facade. Site plan review is especially important in special housing districts designated for preservation (see Neighborhood Conservation District). Structural alterations should be approved only if the developer has complied with formal design standards established for the district. PROPOSED PROGRAMS Concentrated Code Compliance Program Combined with Financial Assistance Programs The Lansing Planning and Building Departments should initiate formation of a task force to develop a set of neighborhood standards (including but not limited to the City Housing Code) by which to proceed with systematic, concentrated code compliance. Program efforts should be targeted into areas shown in this plan where housing problems have been identified. Citizens of the neighborhood should be included as a part of the task force to: A. Help develop additional standards of compliance (beyond those required by City Code) that would more effectively deal with particular problems of the neighborhood. Such standards might also be developed to reflect particular goals established by the group. B. Assist city officials in setting up inspections. C. Provide information about various programs that provide financial assistance to homeowners unable to pay for needed improvements. Code compliance must be flexible where the financial resources of an individual are limited. The financial assistance aspect of this program is strategic to its success. (Financial and other assistance programs related to housing are included in this Appendix.) Neighborhood Maintenance Organizations Such organizations should be formed in neighborhoods where increased maintenance of structures is the goal. Housing here is generally sound and efforts are geared toward improving the appearance of a neighborhood. Neighborhood organization is expected to instill a sense of pride and cooperation among citizens to accomplish this end. Actual use of the program, known as the Neighborhood Housing Services (NHS) Program, would be effective in establishing this strategy or some NHS "type" program could be developed \yith similar participation and under similar guidelines. NHS is a joint project, sponsored by residents, the local government and financial institutions to stimulate maintenance and minor rehabilitation. The process is initiated at the neighborhood level by the citizens themselves. NHS is primarily a self help effort with emphasis on strong citizen participation and loans, not grants, for home improvements. Investment in the area is stimulated by "flexible" code enforcement provided by the city and neighborhood �+ residents who stimulate reinvestment through peer group pressure and a strong community organization. The city government supports the NHS process by helping select the areas to be served, providing code enforcements, making all needed public improvements and by providing staff support during program development. Private financing institutions underwrite the operating budget, serve on the NHS Board of Directors and commit to making conventional loans in the neighborhoods. Housing Sevices and Assistance Program Responsibility for providing the public with a variety of information related to housing programs, financial assistance, technical assistance, design possibilities should be assumed by an agency that would work closely with city departments involved in administering housing programs. Such an agency could be public, quasi -public or private. The Housing Services and Assistance Agency would distribute pamphlets throughout neighborhoods where improvements may be needed. Available information should include but not be limited to the following: A. Financial assistance programs. B. Tax programs (federal, state, local) that provide incentive for rehab work. r C. Design suggestions and alternatives. D. Mortgage or financing alternatives. In the could supply the following services: addition agency A. Technical advice for home improvements. B. Operation of a tool bank for use by citizens desiring to make their own improvements. A .A 83 APPENDIX II ECONOMIC PROPOSALS PROPOSED PROGRAMS/DEVELOPMENT PLANS North Lansing Recent investments of public dollars for curb, gutter, street, and parkland development historically significant North Lansing Commercial Area should be supported by active efforts and planned programs designed to revitalize the area for commercial use. The city, Chamber of Commerce, Economic Development Corporation, and business owners of North Lansing should combine their resources and energy to bring about that revitalization. Program strategies should provide for the following. A. Designation of the North Lansing Commercial Area as an Historic District under the provisions of a local historic ordinance. B. Development of the area according to a theme concept in keeping with its historic heritage, unique urban design, parkland development and plan for metropolitan fishing development. C. Promotional campaigns including advertising, festivals, fishing derbies, and other special events. D. Rezoning of parcels from the "H" Light Industrial Designation to the "F" commercial category and to residential categories. Vacant structures and marginal commercial activities must be dealt with if North Lansing is to become successful once again. Program development to accomplish that goal will rely on the concept of supporting the public investment being made with additional private investment. A firm commitment by the private sector is necessary for the revitalization of this area. The city should continue to provide incentives for that investment through application of the following arrangements and opportunities. A. Establishment of a revolving loan fund through the Economic Development Corporation to provide low interest loans for commercial building rehabilitation and use. B. Designation of North Lansing as a special district under Act 252 to allow adoption of a tax abatement plan that will encourage commercial redevelopment and investment. C. Improvement of publicly owned facilities (streets, gutters, etc.) financed through the Capital Development Program. West Saginaw Commercial Area The proposed West Saginaw Commercial Area Plan would provide for the improvement of parking facilities and vehicular circulation to better serve the needs of shoppers and patrons. Public improvements will include the following: A. Parking lot expansion B. Resurfacing of lot C. Improved lighting D. Landscaping and buffering E. Sidewalk reconstruction F. Tree plantings along Saginaw Street It is recommended that the implementation of this plan be supported by a concentrated effort of businessmen to improve the visual appearance of their buildings according to a coordinated theme in keeping with commercial area revitalization, business expansion and better design principles. A task force of technical design experts, including architects, headed by the Planning Department should meet with businessmen to promote and discuss the possibility of bringing about redevelopment or renovation of theirbuildings. Thetask force would serve as a clearinghouse for information relative to commercial area design and funding sources available to help finance design improvements. Development guidelines and standards will be administered through review process initiated by participating businessmen. Logan/Birch Triangle The Logan/Birch Triangle (bounded by Logan on the east, Birch on the west, and St. Joseph on the south) with good transportation access will be available for the city to develop. This parcel is approximately eight acres. It is surrounded by high volume roadways and it has access to 1-496. The proposals for use of this land include: 1) open space; 2) fire station and open space; 3) fire station and commercial; and 4) fire station and museum and commercial. The fire station has been recommended by the Planning Board in the northern most 2.5 acres of the parcel. The lower 5.5 acres is a prime site for commercial or public development. The Planning Department should actively solicit the involvement and support of Oldsmobile, Fisher Body, Michigan State University, the State of Michigan, neighborhood residents, the Chamber of Commerce and downtown businessmen to develop a site plan for the Logan/Birch Triangle which tentatively could include a museum, restaurant, parking or visitors center. Central Business District The major portion of the proposals regarding the Central Business District are contained in the South Washington Square and Environs Study. They are primarily concerned with providing more convenience for CBD customers and clients and at improving the general appearance. Several of the more prominent features include: A. Creation of a design review board for the CBD. B. Construction of pedestrian bridges across the Grand River. C. Creation of a free package delivery service which would allow customers to have packages delivered to their home or picked up at their convenience when finished shopping. D. Provide for an automotive service center on the perimeter of the CBD. It should be noted here that the River Island Master Plan Study agrees with the concept, but that the location should be moved to the southern half of the block bounded by St. Joseph, Washington, Hillsdale and Grand Avenues. A shuttle service could then be provided for those central area employees wishing to leave their automobiles for service or repair. E. Free bus loop for state employees. This will be discussed more fully in the Transportation Section. In addition to the Holmes and Black proposals, it is felt that a marketing program to promote downtown activities through the Downtown Development Authority is necessary. This would necessarily involve cooperation from the business, cultural and recreational concerns in the CBD. One element of the marketing strategy might include a system of encouraging patrongage, using a cooperative agreement, between various concerns. That is, if someone goes to a play downtown, they may receive 10% off on their next purchase at a downtown store. This system would also work in reverse. This system would promote continued patronage of the activities and stores in the downtown. 84 APPENDIX III COMMUNITY FACILITIES PROPOSAL PROPOSED ADMINISTRATIVE ACTIONS (1) Riverfront Park Development Continue to implement the proposed Waterfront Development Plan for Lansing. Encourage public acquisition of riverfront parcels and obtain easements across private property to provide access to the river. Development proposals include selective clearance of vegetation to enable access to the riverfront, and construction of bike paths and pedestrian walkways along the riverfront, and construction of parking areas close to centers of activity. Regional recreational interest would be generated should the fish ladder be constructed at the North Lansing Dam. Pedestrian bridges at certain places along the riverbank would serve to link existing parks on the north side of the river with the park system being developed in River Island.. Federal, state and local matching funds should be combined to finance parkland development along the river under the administration of the Parks Department with the assistance of the Planning and Public Service Departments. (2) Advertising and Promotion of Recreational Programs Promote recreational and cultural activities and programs with an aggressive information campaign, including but not limited to use of billboards on buses, public television advertising, public service announcements and regular releases to neighborhood organizations and newspapers. Greater knowledge concerning recreational and cultural programs and activities should increase citizen utilization of those services. PROPOSED ORDINANCES None proposed. LEGISLATIVE CHANGES/AMENDMENTS None proposed. PROPOSED PROGRAMS (1) Systematic Park Maintenance A more systematic program of park maintenance is needed that will more effectively and efficiently utilize manpower and equipment available to the Parks and Recreation Department. A schedule of periodic park maintenance should be drawn up and closely followed. Proper maintenance and landscaping improvements should be provided in the existing park system before funds are spent to develop additional parkland. Financial and manpower needs should be met through the following: A. Increase the maintenance budget for the Parks and Recreation Department. City Council should re-evaluate the needs associated with maintenance and needed physical improvements in the city's fine park system and appropriate funds accordingly through both the Annual Budget and the Capital Development Program. B. Create a user maintenance fee separate from the general park maintenance fund to finance maintenance of softball/baseball fields utilized for organized city league play. Present fees charged participants of the program are inadequate to provide for the type of maintenance desired. Each team should be assessed an additional fee to cover the costs of field maintenance, including manpower, equipment, chalking, grass cutting and grading. C. Consider user fees for other park or recreational activities. Specifically a small fee should be charged visitors to the Potter Park Zoo to help offset the large maintenance costs associated with that facility. D. Use CETA workers to increase the work force charged with park maintenance and particular CETA programs geared toward providing summer jobs for young people. Parks Utilization Study (2) The city policy makers should utilize the information that will be gathered as part of the Parks Utilization Study to develop strategies and schedules concerning park expansion or improvements, maintenance and associated costs and financing. The study has been initiated to help determine need, inventory existing facilities and provide a comparison of need and inventory. Recommendations expected to result from the study include the following: A. Needed acquisition of parkland where, when and how much B. Needed addition of park facilities and equipment; where, when, what kind and for whom ' C. Prioritization of development of existing parkland. 85 APPENDIX IV PUBLIC SERVICE PROPOSALS PROPOSED ADMINISTRATIVE ACTIONS (1) House Numbers Responsibility for active enforcement of the City Ordinance requiring prominent display of street address numbers should rest with a municipal department where ordinary daily activities includes routine patrol or inspection of residential sections of the city. It is suggested that this responsibility be given jointly to the Building Department and to the Zoning Division of the Planning Department in connection with other inspections and/or enforcement activities they presently undertake. Since most citizens are unaware that such an ordinance or requirement exists, initial code enforcement efforts should include a friendly warning or "first contact" notice informing residents of the nature of the violation and actions they may take to remedy the situation. Subsequent legal action could employ use of a ticketing and/or summons procedure. (2) Street Lighting The Board of Water and Light should adopt a policy of providing street lights in scale and in character with the surrounding land use. Street lights in residential neighborhoods should be placed at a level of no higher than fifteen feet. The Board should initiate a program whereby citizens affected by changes in lighting systems would be notified prior to changes being made and allowed to consider alternatives related to the intensity of brightness, height and design. The concerns and preferences of neighborhood residents should be reflected in the final choice of lighting standard utilized for a particular location or neighborhood. PROPOSED PROGRAMS (1) Crime Prevention Concentrated crime reduction programs will be most effective where citizen participation is made possible through information and crime prevention education. Relevant law enforcement departments should determine which geographic areas are in need of increased police observation and then provide for more frequent surveillance of those areas. The Police Department and the city should actively promote and educate the public in the use of the "911" emergency number scheduled to go into operation in fall of 1978. Additional techniques to reduce crime include the following: A. Encourage "neighborhood watch" programs. B. Reduce vandalism in parks by providing more concentrated supervision over activities. C. Discourage destruction of public property by using equipment made of materials considered to be "vandal proof'. (2) Energy Production A task force made up of representatives of the Board of Water and Light, private utilities, city officials and representatives of private enterprise (especially the housing industry) should be formed for the purpose of investigating alternative means of energy production and conservation for River Island and the city as a whole. Initially, the primary focus should be to maintain the present steam service area for non-residential customers in River Island. To counteract the effects of dwindling supplies of natural gas, expansion of the existing steam service area should be made available out to Logan Street. The task force should investigate implementation of coordinated programs that would accomplish the following: A. Energy conservation (insulation, weather stripping, construction techniques, education programs, etc.) B. Energy production of the micro level; i.e., use of wind, and solar energy to produce energy for individual housing units. C. Energy production at the mid -level -- use of wind and solar energy producing units to serve neighborhoods. D. Energy production at the macro or regional level using alternative sources of energy; such as wind and/or solar. E. Acquisition of federal and state funds for use in energy producing demonstration projects (3) Curb, Gutter and Street Replacement Improvements to curb, gutter and streets are presently financed through use of general local revenues in combination with state funds allocated under Act 51. Programs should be initiated that will formally identify stretches of road in need of repair or replacement. Adequate matching local funds should be allocated by Council through the Capital Development Program to assure that state funds made available to the city for road improvements will be spent. Priority should be given to use these funds for maintenance and improvement of existing roads. Use of other sources of revenue or funding for such improvements will be applied where appropriate. An inventory of curb, gutter and street conditions will be done annually to determine where and when improvements should be made. The Public Service Department will administer the program with possible assistance from the Planning Department. (4) Storm Water Retention To reduce basement flooding and promote better water quality it is necessary to consider alternatives that would replace or modify the existing combined sewer system found in most of River Island. Proper storage and treatment of storm water effluents can best be accomplished through either separation of the sanitary and storm sewers or through use of storm water retention basins. It is recommended that the Public Service Department undertake a program to provide engineering input and cost estimates relative to construction of storm water retention basins. Costs associated with storage facilities of this type could be much less than those associated with total separation of sewer systems. -, APPENDIX V ENVIRONMENTAL AND LAND USE PROPOSALS PROPOSED ADMINISTRATIVE ACTIONS (1) Noise, Air and Visual Problems --Industrial Related Noise and visual problems created by industrial or commercial users can be reduced through installation of screening, fencing or use of other buffering techniques between those properties and residential areas. The city should require that screening and buffering plans be submitted for review and approval in any case involving new development or expansion and should enforce implementation of those plans. In established cases where the city has no legal right to impose such requirements, efforts should be made to provide a forum whereby the cooperation of both the industrial owner and the residential users will enable some agreement to be reached that would be effective in treating the problems. An example of voluntary cooperation can be witnessed in the Sunset Street area. Should attempts to arrive at solutions mutually acceptable to all fail, the city should act as a third party in providing for the formulation of an abatement plan and seek the advice and financial assistance of the Economic Development Corporation to aid in developing and implementing such a plan. (2)• Noise, Air, Visual Problems --Transportation Related Noise and visual problems along major thoroughfares could be treated through use of similar screening and buffering techniques. The responsibility of providing for such treatment, however, rests more heavily on the public sector. Road expansion or improvement should include plans that would provide for screening, buffering or proper isolation distances in an effort to minimize the deteriorating effect of large traffic volumes on residential or commercial areas. It would be appropriate to seek federal and state involvement in funding processes to provide such treatment along state trunk lines or in association with federally assisted road improvements. The city should identify areas most vulnerable to air, noise or visual problems and help finance effective measures that would improve the situation. It is recommended that the Logan Corridor "Blend" plan be adopted and implemented by the city as it would serve to decrease environmental problems in neighborhoods along and around Logan Street. (3) Relocation of Industry/Households It is recommended that land use conflicts be reduced through either relocation of industrial concerns seeking to expand their facilities or through relocation of housing units adjacent to industrial areas. Funds for industrial relocation to other parts of the city would be available through acquisition of aTitle IX Relocation Grant administered through the local Economic Development Corporation. Household relocation should be administered by the Housing and Redevelopment Department in association with the Planning Department. PROPOSED ORDINANCES (1) Neighborhood Conservation District Ordinance (see Housing Proposals Section in Appendix 1) (2) Screening and Buffering Ordinance The city will develop and implement a screening and buffering ordinance that will require that minimum standards be met to treat visual problems in and around new industrial, commercial, or parking areas. The requirements of the ordinance would also be applied when substantial alteration or expansion of existing facilities takes place. The Zoning Division of the Planning Department should be responsible for review and enforcement of applicable regulations and requirements. Standards should include but not be limited to the following: A. Percentage of view required to be blocked or screened. B. Types of screening materials or alternative methods of screening available for use. C. Financial responsibility based on which activity (industrial, commercial, residential) was established first. Financial arrangements should be structured in such a manner as to allow application of public and private funding sources when appropriate. The Planning Department should provide a forum by which financial arrangements could be worked out between the various affected parties. (3) Historic District Ordinance The city will take advantage of existing State Enabling Legislation and develop an ordinance that would provide for the creation of historic preservation districts. The purpose of such an ordinance would be to ultimately preserve and restore historically significant buildings within a designated district and to establish guidelines for formation of citizen groups concerned with that goal. The ordinance is proposed to specifically protect the investment being made in the North Lansing Commercial Area, but would have practical application in other parts of the city. Citizen organizations would work to initiate the process and establish the following: A. District boundaries B. Development of standards and guidelines C. Review and approval of development proposals D. Information and promotional considerations concerning the district. Practical administration and enforcement of the ordinance could be handled jointly by the Building and Planning Departments with help from the citizens' organization. (4) Sign Ordinance The existing sign ordinance is not comprehensive enough to deal with design problems existing in River Island and the city as a whole. A more restrictive sign ordinance should be developed to more effectively control the following: A. Size of signs B. Placement of signs on or around commercial buildings C. Brightness of electrical signs In addition the new ordinance should include controls over the percentage of window area that may be covered on stores in commercial areas. Sign type and placement should be made part of the site plan review process proposed in this plan. 87 (5) New Zoning Ordinance It is recommended that a new Zoning Ordinance be prepared to reflect concepts in community land controls and management. The new ordinance would redress the existing ordinance base which is outdated and lacks the degree of flexibility in handling multi land use and complex developments. Site plan review is necessary for all districts and a new code must reflect the recommendation and strategies presented in the River Island Comprehensive Plan Revision and as an implementation tool be consistent with other area plan revisions. A new ordinance will permit a more uniform method of enforcement and will provide the opportunity of ensuring consistent application of all adopted and proposed amendments to the 1948 code. Zoning ordinance revision will have to include a new zoning map. Recommended changes are included in Appendix I (Housing Assistance Programs - Proposed Ordinances). LEGISLATIVE CHANGES/AMENDMENTS (1) Site Plan Review (see Housing Proposals Section in Appendix 1) (2) Performance Standards It is recommended that investigation be made into the possibility of developing and adopting a set of operating performance standards for industry. Performance standards are limits attached to air, water and noise pollution resulting from activities common to manufacturing or industrial operations. Should measurements taken indicate that a particular industrial activity exceeds predetermined allowable standards of performance, that activity would be curtailed until proper action could be taken to eliminate the problem. The Public Service Department would be responsible for taking measurements and making routine inspections in problem areas and enforcing the performance standards. The performance standards developed by the Environmental Protection Agency in respect to the effects industrial activities have on air, water and environmental quality in general would have practical application in Lansing and should be considered during the development and adoption process. PROPOSED PROGRAMS (1) Commercial Design Assistance and Promotional Task Force The city should actively promote development or renovation of commercial centers such as the West Saginaw Commercial Center and the North Lansing Commercial Area according to a theme that will provide for more coordinated design in character with the surrounding area. A task force of techical design experts, including architects, headed by the Planning Department should meet with local businessmen to promote and discuss the possibilities of bringing about redevelopment or renovation of their commercial buildings according to prescribed design recommendations or standards. The task force would serve as a clearinghouse for information concerning commercial area design and funding sources available to help finance design improvements. Development guidelines and standards will be administered through review process initiated by participating businessmen. The Design Review Board of the Central Business District is currently charged with similar responsibility for that specific commercial area. The responsibilities and principles of that Review Board would have practical application under this proposed program. (2) Redesigning Lot Layouts In areas where housing is being redeveloped and lots are subminimal in respect to the existing Zoning Code lot area requirements, consideration should be given redesigning lot layouts to allow for reduction in overcrowded conditions. In some areas it may be appropriate to selectively acquire and remove blighted housing units with the same goal in mind. Such action will serve to "open up" overbuilt neighborhoods and provide for more open space and distance between homes. ,R APPENDIX VI CIRCULATION AND PARKING PROPOSALS PROPOSED ADMINISTRATIVE ACTIONS Traffic Control The Traffic Department will work in conjunction with citizen groups and City Council to develop individual circulation plans for specific neighborhoods. These plans would: (1) discourage the use of residential streets by through (commuter type) traffic; (2) identify and correct poorly designed or dangerous intersections; and (3) reduce traffic speed within neighborhoods. The objective would be to preserve the residential character, and improve safety. Circulation plans should, however, allow access by emergency vehicles and public transportation, as well as, to residents' homes. Techniques that can be employed include but are not limited to: 1. Signs - Speed Limit - Stop -Yield - Parking Restrictions - Weight Restrictions - Etc. 2. One Way Streets 3. Two Way Streets 4. Blinkers 5. Stop Lights 6. Diverters DIVERTERS Curb Protrusions U Barricades O s Planters DEAD END STREETS , "T" Turn- around Cul de sac � "Y" Turn around �i Loop streets A new single system for functional classification of city streets should be adopted. The classification system included in Appendix VI I would be used by all departments and includes a method of converting the numerous other systems (Act 51, Regional Street Plan, FHWA) when being used with outside agencies and funding sources. Eventually efforts should be directed toward adoption of this system by all federal, state and other local agencies involved in the field of transportation. This system would provide the policy basis for street lighting, truck routing, street improvements, signalization and similar traffic improvements. PROPOSED ORDINANCES Truck Routes A City Truck Route Ordinance should be adopted which identifies the streets on which truck traffic would travel. This would aid in protecting local residential streets from non -local truck traffic. The ordinance would apply to the larger semi-trailerand large hauling trucks which create noise and odor nuisance in residential areas. On Street Parking It will be necessary to develop a city ordinance that will allow for on street parking in designated neighborhoods between the hours of 2 a.m, and 5 a.m. The ordinance should include a list of streets where parking will be permitted. Loading and Unloading An ordinance should be developed to provide guidelines for loading and unloading of trucks in and around the Central Business District and other commercial areas. Such an ordinance should specifically state the following: A. Areas where loading and unloading are permitted. B. Hours when unloading will be permitted. It is recommended that loading and unloading activities be prohibited around the downtown area between the hours of 7-9 a.m., 12-1 p.m., and 4-5:30 p.m. C. Enforcement procedures. D. Penalties for non-compliance. LEGISLATIVE CHANGES/AMENDMENTS None proposed PROPOSED PROGRAMS Increased Use of Public Transportation Promote increased Public Transportation use through the implementation of the Long Range Public Transportation Plan prepared by Tri-County Regional Planning Commission. The Concept Blend Alternative includes these features: A. Implementation of the Transportation Services Integration Project (TSIP). This requires the inventory of resources and the developing of programs to meet specific needs of the transit dependent living in the Tri-County region. B. Implement a new demonstration and evaluation of a new high service and major corridor/feeder routes serving downtown Lansing. This service level identifies 7'/2 minute headways on major corridors for faster, more responsive service. The major, corridor routes among others would provide service through the Downtown Transportation Terminal. C. In order to better serve the Amtrack Station and the Capital City Airport, fast service to and from these two activity centers should be included in the implementation schedule. This kind of service with increased promotion and advertising campaigns will bean incentive for people to use public transportation instead of other modes with no or minimum transfers and delays. D. Attain increased level of transportation service to the elderly and the handicapped by SPECTRAN. E. Evaluate peripheral area Park and Ride Program. F. Implement Sunday service. In addition to the Long Range Transportation Plan the following recommendations should be applied: A. Provide schedule information at bus stops. B. Assist in financing, constructing and maintaining bus shelters to encourage ridership during inclement weather. C. Provide bicycle racks at high utilization bus stops and on buses to promote the interchange between these modes. Non -Resident Parking Control non-resident parking in River Island by: A. Providing centralized parking areas in neighborhoods for residents parking. This would require the acquisition and clearance of a home, zoning the property "J" parking and the paving and landscaping of that lot. B. Institute a sticker system for residents of designated neighborhoods. This would allow residents on -street parking while non-residents without stickers would not be allowed to park in the neighborhood. The Parking Division will coordinate this effort with the cooperation of citizen groups and the Planning Department. Additional parking enforcement will be necessary. The program could be run much as the city permit parking lots are. Persons would request permits through the Parking Division. The terms of these permits should be in excess of three months. C. Allow alternate side parking from 2 a.m. to 5 a.m. for residents in specified areas. 11 APPENDIX VII CITY OF LANSING — FUNCTIONAL STREET CLASSIFICATIONS The purpose of this document is to define more clearly a policy concerning the general standards which should be utilized in determining street classifications and the relationship between each type of street and the amenities which should be provided along the streets. In several instances which have occurred in recent years, problems have arisen in attempting to reconcile the various street classification standards in order to gain common definitions of street use and provide technical guidance concerning actions being proposed by various city departments and boards. At present, four street classification systems are operative in the city of Lansing. The first is the system utilized by the city to obtain "Act 51" funds from the State of Michigan Highway Fund. The second incorporates the designations used in the Lansing Master Plan; the third includes the classifications in the Regional Street Plan. The last system is the one employed by Federal Highway Administration for Urban Systems funding. Each of these systems employs either different terminology or different definitions for the same terminology. All of the systems use different criteria upon which to base their classifications. There have been no attempts to develop a method to equate the various systems or for adoption of only one system. Because of the confusion caused by the numerous street classification systems, policies concerning those components of the physical environment related to streets and their use have been necessarily hard to develop. For example, policies concerning the types of street lighting, street trees, truck routing and surrounding land use are varied or non-existent depending upon the street classification system utilized. A prime example of these variations is illustrated by the fact that the Act 51 system does not require any illumination of the street, major or local, while the Regional Plan sets forth elaborate standards forthe type and intensity of lights along particular types of streets. Due to these inconsistencies, it was necessary to develop a common or equitable base by which to coordinate the activities of various departments and common ground for different municipalities to discuss metropolitan and regional circulation related problems. The common base involves the development of a single system for all city departments to use and include a method of converting all other systems when working with outside agencies. This classification system could be implemented in a relatively short amount of time. It would cause very little confusion, and leave the option open to complete the conversion at a later time. M The system proposed here is based primarily on the Highway Functional Classification Concepts, Criteria, and Procedures, U.S. Department of Transportation, Federal Highway Administration, July, 1974. This document outlines the conceptual base for functional classification as "...the process by which streets and highways are grouped into classes, or systems according to the character of service they are intended to provide. Basic to this process is the recognition that individual roads and streets do not serve travel independently in any major way. Rather, most travel involves movement through a network of roads." The criteria used for delineating and controlling a street as a particular type also serve as the guidelines forfuture actions concerning that street or any other street of that class. Certain of these criteria are statutorily fixed and others have been developed through research and tailored to fit the needs of Lansing and will be the primary instrument of the city's Master Street Plan. 1 1 1 1 Functional Street Classifications Table General Guidelines Function/Type Local Collector Minor Arterial Principal Arterials /Freeways Primarily serves abutting Serves to collect and disburse Services as a connector between Primarily serves through traffic, land uses, least amount of traffic to and from local and principal arterials. Moderate carries major amount of through traffic, through -traffic arterial streets. Equal empha- travel times and volumes, often form traffic, shortest travel time, discouraged. sis on access to land uses and neighborhood boundaries. Some serves major activity centers. through traffic. Penetrates emphasis on providing access to Least emphasis on providing access neighborhoods. More traffic and abutting land uses. to abutting land uses. less travel time than on local streets. Expressway - serves interurban traffic. Primarily controlled access. State Residential Local Access Principal Collector Local Arteries Metro- Regional Arterials Classification Industrial/Commercial Secondary Collector Area Arterials State -Wide Arterials Public Transit Bus routes discouraged Dial a ride or short bus routes Intraurban routes encouraged. Inter and intraurban bus routes Pedestrian paths provided allowed. Integrated bike paths. Separated bike paths and pedestrian encouraged. Separated bike paths separately. Pedestrian paths separated. paths. and pedestrian paths. Volumes Less than 1,500 ADT 1,000 - 10,000ADT 8,000 - 20,000 ADT Greater than 15,000 ADT Speed Limits 25 m.p.h. 25-25 m.p.h. 25-45 m.p.h. 30-55 m.p.h. Width of 26-36 feet 30-40 feet 36-48 feet Greater than 40 feet Pavement Number of Two moving lanes; one in Two -three moving lanes; two Two-four moving lanes; two directional Three or more moving lanes --two Moving Lanes either direction directional or one way or one way. directional or one way. Parking Generally allowed on Parking allowed on one side if Prohibited except where required by Prohibited except where required Existing both sides unless a the pavement width is 28-35 feet. abutting land use, by abutting use and where it Streets hazardous traffic Parking allowed on both sides if would not encroach on moving situation has been the pavement width is 36 feet or lanes. identified. wider. New Streets Same Parking allowed on one side if Prohibited Prohibited the pavement width is 32-39 feet. Parking allowed on both sides if the pavement width is 40 feet or wider. Lighting Low profile --on telephone pole Low profile --on tele- Low or high profile (type of High profile (type of fixture or individual stanchion for phone pole or individual fixture optional). optional) residential streets (type of stanchion (type of fixture fixture optional). High profile optional). for commercial collectors. 91 STREET SYSTEMS TERMINOLOGY INTERCHANGE TCRPC URBAN LANSING 'REGIONAL "ACT51" FUNCTIONAL SYSTEMS MASTER STREET PLAN CLASSIFICATION PLAN LOCAL 3m. LOCAL w LOCAL 0. URBAN 1 RESIDENTIAL ROAD COLLECTOR —30. SECONDARY _ SECONDARY ROAD ' THOROUGHFARES MINOR — MAJOR 3 MINOR PRIMARY PRIMARY ARTERIA� ARTERIAL � ROAD THOROUGHFARES \\\i PRINCIPAL MAJOR _o TRUNKLINES b ARTERIAL/ —•► INTERSTATE ARTERIAL FREEWAY PRIMARY LIMITED INTERSTATE ACCESS THOROUGHFARES Comprehensive Plan Preparation Staff James Spackman Deputy Director William Acheson Senior Planner Eleanor Love Senior Planner Ellen Reckhow' Senior Planner Emil Winnicker Senior Planner Donovan Hanna Graphics Coordinator Maureen Miller Graphics Designer Julie Eddie Senior Clerk Pat Collins' Intermediate Clerk Student Interns from Michigan State University and Lansing Community College Marta Becker Steve Hartraught Sue Hetzel Tom Miller Phillip Stair 'Staff transferred to other City agencies "Sketches and drawings throughout the Plan were prepared by Sue Hetzel and Maureen Miller Information Available at: Lansing Planning Department 119 North Washington Square Lansing, Michigan 48933 Telephone: (517)487-1400