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Home My WebLink About1978 River Island Area Comprehensive PlanRIVER ISLAND AREA COMPREHENSIVE PLAN Lansing Development River Island Area Comprehensive Plan 1978 Permanent Document: 1 1978 River Island Area Comprehensive plan WARNING: THIS PLAN WILL SELF DESTRUCT IF NOT USED. DO NOT OPEN UNLESS YOU INTEND TO IMPLEMENT M LANSING PLANNING DEPARTMENT JULY, 1978 Comprehensive Plan Preparation Staff William Acheson Eleanor Love Emil Winnicker Ellen Reckhow* Maureen Miller Patricia Collins Julie Eddie James Spackman Student Intergs from Michigan State University and Lansing Community College Marta Becker Steve Hartraught Sue Hetzel Philip Stair Tom Miller *Transferred to Housing & Redevelopment Department "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 March 29, 1968 r MAYOR Gerald W. Graves CITY COUNCIL Richard Baker James Blair Louis Adado Terry Mc Kane Lucile Belen Robert Hull William Brenke Jack Gunther -PLANNING BOARD Edward Remick Merle Barnhart Toni Diaz Charles Lyons Emly Horne 'Richard Gaus James Nelson Gordon Cornwell PLANNING DIRECTOR Alan E. Tubbs ACKNOWLEDGEMENTS The Comprehensive Development 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/agencies for their assistance in the preparation of the Physical Development Plan. RIVER ISLAND POLICY REVIEW COMMITTEE Luther Flanagan Turney Gratz Richard Hegmon Ann Kron Walter P. Maner Douglas McKinstry James Winckler Frank Melvik Esther Niver George Petroff Reverend Rosa Lee Porter Edward Remick Jeanette Snyder James Walkinshaw DISTRICT #1 (WEST SIDE) William Bradley Betty Bradley Ron Callen J.R. Caton Hilda Patricia Curran Wynonia Daniels Gertrude Davis Patrick Finch Luther Flanagan Margout Gittle Jeanne Gratz Turney Gratz Irene Herrman John Iverson. Robert Kocsis Ann Kron Walter Kron Sue Manturuk Margaret L. Merchant John McKissic Mr. & Mrs. Walter Neller Jan Nesin Pat Smith Ery Spahr Ruth Spahr Chris Steele Carmela Vadnais Mark Vazny Marty Vazny Mark Wyckoff DISTRICT #2 (KEYSTONE) Kaye Baker Louwillie Baugus Leon Black Enid Chappell Marie Cromwell Louise Flory David Harrington Wallace Higelmire Lucille Higelmire Alan Kates Jane Kingsbury Lou LaFollette Robert LaFollette Jack Leser Douglas McKinstry Erin Middleton Mary Middleton. Richard Nelson Richard Peterson Diana Reedy Jeanette Snyder Mary Williams Gerald Wood ii 1 DISTRICT #3 (NORTH SIDE) James F. Anderton Don Wilson ' Douglas Bates Faith Gibbons Catherine Bates Dora Gaiser Eleanor Brewer Clement Koenigsknect Ira Bryant Roger Morey Rose Dase Natalie Morey Leo Dase Robert Morris Kathryn DenHouter Veronica Smeltzer Leonard DenHouter City Department/Agency Staff Tri-County Regional Planning Commission Capital Area Transportation Authority Board of Water and Light Traffic Department Public Service Department Parks Department Assessor's Office Finance Department Building Department Human Resources Department Housing and Redevelopment Department Fire Department Police Department Planning Department A special note of appreciation is given to the Willow Street School staff, Kingsley Place Center staff, and Lansing Community College administration for use of their facilities during the many months of meetings with the various citizen committees in preparing this plan. ;ii 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 seg- ment. 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 functional in nature, the Capitol area should reflect the style and energy of our State. The Central Business District will strengthen as more residents from residen- tial 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 #2 IV TABLE OF CONTENTS INTRODUCTION Locati onal Setting . . . . . . . . . . . . . . . . . . . . . . . Purpose. . . . . . . . . . . . . . . . . . . . . . . . . . . . .3 Process. . .. . . . . . . . . . . . . . . . . . . . . . . . .5 Definition of Terms . . . . . . . . . . . . . . . . . . . . . . .g BACKGROUND Population Profile . . . . . . . . . . . . . . . . . . . . . . .13 Land Use Profile . . . . . . . . . . . . . . . . . . . • • • • .17 Housing Profile . . . . . . . . . . . . . . . . . . . . . . • • .23 Economic Development Profile . . . . . . . . . . . . . . . • • .44 Community Facilities Profile . . . . . . . . . . . . . . . .50 Public Services Profile . . . . . . . . . . . . . . . . . . . • .56 Environmental Profile . . . . . . . . . . . . . . . . . . . . . .71 Circulation Profile . . . . . . . . . . . . . . . . . . . . . . .73 POLICIES, ASSETS, PROBLEMS, STRATEGIES Housing. ... . . . . . . . . . . . . . . . . . . . . . . . . 84 Economic Development Commercial. . . . . . . . . . . . . . . . . . . . . . . . 97 Office . . . . . . . . . . . . . . . . . . . . . . . . . . 103 Industrial . . . . . . . . . . . . . . . . . . . . . • 105 Community Facilities . . . . . . . . . . . . . . . . . . . . . • 109 Public Services. ..• • • • • • • • 114 Environmental Conditions and Land UseConflicts. . . . . . . . • 119 Circulation. . . . . : . . . . . . . . . . . . . . . . . . . • 129 GENERAL PROPOSALS FOR•DEVELOPMENT LandUse Map . . . . . . . . . . . . . . . . . . . . . . . . . . 146 CirculationMap . . . . . . . . . . . . . . . . . . . . . . . • • 147 IMPLEMENTATION . . . . . . . . . . . . . . . . . . . . . . . . . . . . 159 PRIORITIZATION . . . . . . . . . . . . . . . . . . . . . . . . . . . • 162 APPENDICES . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 169 v LIST OF MAPS Map 1 River Island Area and District Boundaries. . . . . . . . . . . 7 Map 2 Generalized Land Use . . . . . . . . . . . . . . . . . . 19 Map 3 Major Land Use Features . . . . . . . . . . . . . . . . . . . . 20 Map 4 Generalized Zoning . . . . . . . . . . . . . . . . . . . . . . 22 Map 5 Existing Housing Condition . . . . . . . . . . . . . . . . . . 39 Map 6 Average Value of Owner Occupied Units by Census Tract - 1970 . 41 Map 7 1975 Sales Ratio . . . . . . . . . . . . . . . . . . . . . . . 43 Map 8 Schools in River Island . . . . . . . . . . . . . . . . . . . . 51 Map 9 Parks and Recreation Centers in River Island . . . . . . . . . 53 Map 10 Churches in River Island . . . . . . . . . . . . . . . . . . . 55 Map 11 Separated Sewer Areas . . . . . . . . . . . . . . . . . . . . . 57 Map 12 Water Wells & Lines . . . . . . . . . . . . . . . . . . . . . . 59 Map 13 Electric Transmission . . . . . . . . . . . . . . . . . . . . . 61 Map 14 Electric Distribution . . . . . . . . . . . . . . . . . . . . . 62 Map 15 Electric Underground . . . . . . . . . . . . . . . . . . . . 63 Map 16 River Island Lighting - Incandescent . . . . . . . . . . . . . 64 Map 17 River Island Lighting - Mercury Vapor . . . . . . . . . . . . . 66 Map18 Steam . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 67 Map 19 Fire Districts . . . . . . . . . . . . . . . . . . . . . . 69 Map 20 Police Districts . . . . . . . . . . . . . . . . . . . . . . . 70 Map 21 Average Daily Traffic Volumes - 1974 . . . . . . . . . . . . . 75 Map 22 Accident Rates for Selected Intersections. . . . . . . . . . . 76 Map 23 Bus Routes in River Island . . . . . . . . . . . . . . . . . . 78 Map 24 Bicycle Routes . . . . . . . . . . . . . . . . . . . . . . . . 81 Map 25 Housing Areas Recommended for Application of Strategies Designed to Maintain Assets . . . . . . . . . . . . . . . . . . . . . 87 vi Map 26 Housing Areas Recommended for Preservation and Rehabili- tation. . . . . . . . . . . . . . . . . . . . . . . . . . . 89 Map 27 Housing Areas Recommended for Selective and Major Redevelopment. . . . . . . . . . . . . . . . . . . . . . . . 91 Map 28 General Business, Office and Industrial Modes in River Island 108 Map 29 Areas Recommended for Screening and Bufferinn . . . . . . . . 122 Map 30 Areas Recommended for Design Controls . . . . . . . . . . . . 123 Map 31 Areas of Land Ilse Conflict Where Screening and Buffering Treatments are Recommended . . . . . . . . . . . . . . . . . 125 Map 32 Residential Streets with High Volumes of Traffic.. . . . . . 133 Map 33 One-way Streets Recommended for Return to two-way service . . 135 Map 34 Areas Recommended for Intersection Changes .. . . . . . . . . 137 Map 35 Proposed Land Ilse . . . . . . . . . . . . . . . . . . . . . . 148,153,156 Map 36 Proposed Circulation . . . . . . . . . . . . . . . . . . . . . 149 - 151 154, 158 vii LIST OF TABLES AND FIGURES Table I 1960-1975 Change in Population . . . . . . . . . . . . . 13 Table II Age Distribution: 1970 . . . . . . . . . . . . . . . . . 13 Table III Median School Years by Census Tract. . . . . . . 14 Table IV Median Income By Census Tract . . . . . . . . . ... . . . 14 Table V Occupation; Head of Household. . . . . . . . . . . ..15 Table VI Changes in Household Occupancy Characteristics . . . . . 15 Table VII Housing Trends . . . . . . . . . . . . . . . . . . . . • 25 Table VIII Comparative Housing Trends . . . . . . . . . . . . . • • 27 Table IX Major Housing Units Losses . . . . . . . . . . . . . . • 30 Table X Trends by Type of Structures . . . . . . . . . . . . . • 33 Table XI Tenure Type Distribution . . . . . . . . . . . . . . . • 34 Table XII Age of Housing . . . . . . . . . . . . . . . . . . • 35 Table XIII Condition of Existing Housing . . . . . . . . . . . . . • 37 Table XIV Vacancy Data . . . . . . . . . . . . . . . . . . . . . • 40 Table XV Activity Node by Type of Activity. . . . . . . . . . . • 44 Table XVI Commercial/Office Establishments by Node . . . . . . . • 45 Table XVII 1974 Central Business District Employment. . . . . . . . 46 Table XVIII Gross Sq. Ft. in Core Area by Type and Occupancy . . .*. 47 Table XIX Manufacturing Employment in River Island - 1976 . . . . 49 Fiqure 1 Land Use Distribution . . . . . . . . . . . . . . . . . . 18 Figure 2 Housing Trends (1940-2000) . . . . . . . . . . . . . . . 28 Figure 3 River Island Housing Units as Percent of City Region. . . . . . . . . . . . . . . . . . . . . . . . 29 viii Introduction #0 ' "4% 50 MILE RADIUS CIRCLE J* 94b,ano 4poo 00 00 TRI-COUNTY AREA BOUNDARIES LANSING, MICHIGAN RIVER ISLAND AREA -1- Locational Setting River Island is located in the Clinton -Eaton -Ingham Tri-County Region which is situated near the 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 of Michigan, Michigan State University, Oldsmobile Division of General Motors Corporation and many acres of prime agricultural land. 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, the Capitol building and many retail establishments, are located within the area. The 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 existance of the Grand River which borders on three sides and the city limits on the fourth (west) side. In addition, major land develops such as the I-496 freeway, the Capitol Complex, the Central Business District, the railroads and the General Motors Corporation plants (Oldsmobile & Fisher Body) tend to further geographically separate the west side residential area, with its schools, from the other residential neighborhoods of the City. Hence, the extensive land use di- versity and unique geographic features have led to the continued use of the descriptive name of "River Island". -2- I INTRODUCTION ' Pose 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 in- creasing municipal revenues to pay for rising service and facilities costs. This report presents a new approach to the Comprehensive Planning Process and managment ' 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 environ- ment. 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, ' mechanism for monitoring or evaluatingdetermine the absence of a time has contributed to current physicaldevelopment affects over The Mayor, City Council and administrators require a set of policies that are beyond the traditional, generalized, long-range land use map to implement compre- hensive 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 by 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 occur- ing within the boundaries. The River Island area is ' ned bthe Grand River on the north, east and south. The westernrbounda ydisirepresented by the Lansing City Limits along Clare Street. This area is approximately 1,823 acres or 11.2% 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 Central Business District. There C are approximately 19,800 persons living in the area which represents 14.2% of the total city population. -3- ' What is the Com r p ehensive Development Plan? ' The Development Plan is a document which sets forth policy statements for ion - making and is adopted by the Planning Board and City council. The cooperatives efforts Of public and private sectors are required to formulate this plan and establish pri- orities for improving "the quality of life for everyone". The De p _ monly referred to as "Master Plan consists of written text, maps vand other Pgraphic aids to describe present and future land use, housing, circulation, community facili- ties, business and industry and urban design features of the city. The 1 an p a frame of reference and a blueprint for future public and private developmentranddes re -investment. It must be constantly re-examined as conditions change and is compre- hensive 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 development, growth projection approach but guide Pm preservation and accommodate change, , directing those things we as a community want to see happen. The plIt is a focus .foraguiding and n reflects the capability to implement recommendations within a ten (10 plan must be reviewed and revised annually to account for) changes riniPolicy and new programs for implementation. Legal Basis for the CnmNrehensive 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 to prepare a Master Plan for physical development for the municipality. The Cityof'Lans ing has had the benefit of Master Plans preparedby prominent consulting firms in the years of: The Lansing Plan, 1921 - Harlan Bartholomew & Associates The Comprehensive City Plan, 1938 - Harlan Bartholomew & Associates The Comprehensive Master Plan, 1960-1980, Ladislas, `SOoe & Associates. The City has adopted six (6) significant revisions for this 9 ' Master Plan: 1967 Central City Development Plan, Vilican-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 #2, City Planning Department 1974 Edgewood Boulevard Corridor, City Planning Department �` 1976 Lewton Neighborhood Plan, City Planning Department Plan Organization The Comprehensive Plan Document contains three major sections: (2) Problems, Assets and Strategies, and (3) Priorities and Implemlentation. 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 condition of the physical development and the people livingin forinarea. The population and household description are provideatione River lonl y with no attempt to identify or explain trend/implications for planning. The infor- ide a discus- mation profiles for land 'use and physical characteristics however prov sion on the trends and implications for planning. Detailed information for each district is provided in the respective district plans. Anal sis of Assets Problems and Im lamentation Strata ies - This section contains six 6`n_ cc R ona categor es ous ng, 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 fo strategy or action are described for enhancing asset and resolving provide direction to meet citys. problem situations and to include geographic area anagency responsibility isbused within rief gthe ttext ent of the document (a detailed explanation of program strategies is found in the appendix). 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 esta f shied within each functional area, first at the district level, then blended for the River Island area. These priorities provide guidance to the im- plementinq departments and decision -makers in preparing the City's Capital Develop- ment 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. Comprehensive 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 Depart- ment 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. -5- The initial step was to formulate a policy committee to guide and participate in the formulation of +he River Island Comprehensive Plan process. This policy Com- mittee 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 Yormed to the Planning Board, approved by the. Plannina ' 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 city-wide 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 ' t from technicians and citizens about specific needs of River Island for the various functional categories described in the goals and objectives. Concurrently with the Policy Committees 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. The area ' policies including rationales were completed in October 1977 and submitted to the District Committees as a guide in preparing the District Plan.(;,, At that point the Policy Committee became inactive, however, many members also participated at the district planning level. The three planning districts and participation level were as follows: District #1, generally west of Logan Street, north of I-496, south of Saginaw, bounded on the west by the city limits, represented almost solely a residential community. Approximately 13 residents partici- pated in this committee with a mailing list to receive information and meeting minutes of about 50 individuals. District #2 consisted of the area south of Saginaw, east of Logan and Grand to the city limits. The area south of I-496 was also included in District #2. 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 Sagi- naw Street and had approximately 15 representatives and a mailing list of 25. 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 5.11 Map 1 AA-43 River Island Study Area District Boundaries NINE 1 �., ■■mini �■��.■ ■Mimi■■ Of 1�1 ■ ��■In In■ ■�■MINI■■■■�i�i� O p A N D R I y E q • a • OL DBM0151I1! N4 ❑❑0�� .. �u LANSING. PLANNING DEPARTMENT -7- 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, ex- press what their problem was within specified functional categories. The in- dividual'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 sug- gested 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 for- mulated 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 re- vision 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 T.V. stations (WJIM and WILS), the State Journal and North Lansing Gazette and the Community Development Newsletter were frequently used to advertise meetings and explain the plan process. There were three mailings to every address in River Island (approximately 10,000 units) and posters distributed to churches, stores and simlar 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 monitor- ing of plan implementation. The district committees will end their intensive involvement but start this continuous forum approach to get at the implemen- tation 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 com- mit its personnel to support these committees with the expectation of meetings held ' on a monthly or bi-monthly basis. 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 Fyy properties fronting on the west side of Sycamore Street on the west, Saginaw -8- ' Avenue on the north, Chessey Railroad on the east and I-496 along the south. Central Business District(CB D) - an area generally bounded by Shiawassee Street on the north, ran ver on t e east, Lenawee Street on the south and Capital Avenue along the west. The CBD is the traditional center of business and retail activity for the city. tCityorCity of Lansing - Generally refers to the Mayor, City Council and to all the ci y departments, boards and ggencies. However, in obvious instances the ' word refers to the geographic municipal boundaries. Code Compliance - The correction of all violations of the Lansing Uniform Housing ' Code 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: ' Cit -wide Goal Statements - City-wide goals are very broad and general state- ments of what we wouTFMe our city to be and do. These goal statements pro- vide 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 order to 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 15—nd which is used for residential purposes exclusive of public parks, streets and non-residential land uses. ' Gross Densit - the ratio.between a specified number of housing units and an acre of and inclusive of all other land uses. Low Densit Housing - An area having a net housing density of less than six units per acre. ' Moderate Density Housing - An area having a net housing density of more than six 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. -9- Housing Surve - A survey tool used to determine the physical condition of existing ousing y v sual inspection of the major exterior elements of the structure. Standard - A sound structure; good condition which may have some deficiencies capabla 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 suc as chimney replacement, roof structure repair, extensive repair to walls or foundation and replacement of window and door frames. ' Critical - A building in very poor or delapidated condition which may be in ruins or with very extensive defects and questionable feasibility for repair. ' Housin Unit - A building or a portion thereof, designed for occupancy by an individual or am y or residential purposes and having kitchen and bathroom facilities. ' Lansing Uniform Housing Code - An ordinance which provides the minimum requirements for the protection o e, imb, 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 part cu ar y i2entifia le such as architecture, street layouts, land- scaping, etc. Nei hborhood 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 andcarted with the County Plat Board. Replatting is a process of changing the unda- ries of a recorded lot. ' Policy: City-wide Polic - 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 travel. (Approved October, 1977). ' Area Polic - 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 l ife n a given geographic area. �butes to the quality of -10- Problem - A feature or condition that has an adverse/negative affect on ' the liability 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 improve- ments of the physic —a condition of the individual housing units and the sur- rounding 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,Tight fixtures and the general physical environment as perceived by.oer- ' sons living, working or passing through an area of the community. It includes the identity, distinction and personality given to physical features and geo- graphic areas such as historic landmarks, architectural styling, natural foliage and similar aesthetic amenities. ' �Zoningg The division of the community into districts to regulate the use of land a —and structures and to minimize potential' conflicts by insuring that the land uses are properly situated in relation to one another. Background Information 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 how those 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, ' office, commercial and industrial concerns all within close proximity. This background section will attempt to draw "n 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, some data items for North Lansing were estimated on a percentage basis. -12- i 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 repre- sents 14.2% of the total Lansing Population (139,000). iWhile the City of Lansing's population has grown almost 5% between 1970 and 1975, the River Island Area population declined by 18.4% (Table I). This fact can largely be attributed to expansion of public and private non-resi- dential development into residential areas. Other factors (declining birth rates, elderly households, etc.) have also contributed to decline. TABLE I Change in Population 1960-1975* iChange %Chan e Year Population + i 1960 31,108 1970 25,439 -5,411 -18.1% 1975 19,860 -4,493 -18.4% *U.S. Census, 1960 and 1970, Lansing Planning Department, 19751 iAge 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 hi her percentage of people 62 and over (13%) than the city as a whole (10%�. TABLE II Age Distribution 1970* Under 18 Area City Under 18 7,755 (32%) 47,367 (36%) 18-61 13,236 (55%) 71,035 (54%l 62+ 3,352 (13%) , 13,155 10% 24,343 (100%) 131,557 (100%) *U.S. Census, 1970 i11975 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). -13- 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 1 L •4 12.4 124 t2.2 IZ•2 12 12.E 12 l(•5 11 10. I 10 9 2 3 44 5 141 15 16 Is, 19 Income The best available information is 1970 census data. In 1970, the median income in River Island was $6,700.00. 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 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 +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 9,410.00 in 1970. Furthermore, six (6) of the nine (9) fall below the low income level ($7,525 as established by federal guidelines for 1970). -14- 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* Prof., Tech,. Mgr. Sales, Clerical Craftsman, Foreman Operatives, Incl. Trans. Laborers Service Others River Island (%) Cit % 16% 21% 31 % 30%' 11% 13% 21% 18% 5% 4% 14% 13% 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. 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 unemploy- ment 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 didn't lend it- self to disaggregation to census tract breakdown with any accuracy. B. 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. ' 1960 1970 TABLE VI Change in Household Characteristics Households City RI Persons/Household One Person Female Head Household c ty RI Ci City y City I 33,558 10,645 42,643 9,319 3.17 2.92 3.06 2.74 5,352 2, 584 (30%) N9%� 8,079 2,823 11%. -15- 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. C. 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 through- out the city. This can partially be accounted for in that a primary factor is the cluster school concept which transports many elementary (not kindergarden) 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 and Main Street Schools. Also, since there is not a junior high school in River Island, most stu- dents in those grades are transported outside the area. Sexton High School, with ' 1,542 students, is located on the western periphery of River Island. 1978 Enrollments by Elementary School 1970 1978 Walnut Street School 451 318 Genesee Street School* 315 247 Main Street School* Vivian Riddle School (Michigan)* 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 represented 11.2% of the River Island population. Map I depicts the concentrations of LCC students in River Island as being located primarily in the central area of the city ad- jacent to the college or in the southeastern corner of the River Island Area. LCC students may continue to be an 1 ncreasing segment of the River Island community. -16- ILAND 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 great variety of activities take place within River Island because it contains a full spectrum of urban develop- ments 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 com 'City Assessor's records. These records classif landputeused printouts from the y parcel land use only by the pri- mary use. This technique is not 100-percent accurate because various uses are sometimes intermixed on the same parcel. In the multi -story buildings, particu- larly in the eastern portion of River Island, ground floor uses frequently differ ' from uses on upper floors. Nevertheless, the technique does give a close approxi- mation of the character of River Island. Figure 1 geographically illustrates the area's net land use. The categories in the following chart of land use are fro m 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, lnsurance�.real estate, personal services, repair services, contractors, government, pro,'�ssional ser- vices, schools and religious institutions. Alleys, railroad righti"Of ways, and bus terminals are included in the transportation category. Not in,,'uded are the approximately 64 miles of, street pavement.. ' Map 2 indicates generalized land use in River Island and Map 3 dep tcts the major land use features. A generalized description of land uses follows. More detailed information is located in the appropriate sections of the pro- file. 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 I-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 continuin conversions 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. ' -17- RES MANUFACTURING 242a.; 14% TRANSPORTATION COMMUNICATION & UTILITIES 202a.; 11% Figure 1- Land Use Distribution 4 SERVICE 174a.; 10% VACANT LAND & BUILDING 208a.; 12% * CULTURAL & PK RECREATIONAL 96a.; 5% TRADE 50a.; 3% wo MAP 2 GENERALIZED LAND USE MAP April 1976 ❑ Residential ® Business.Office Govt./ Public & Semi -Public Institutions/Utilities ® Industrial ® Parking/Vacant Land ii i . �, mom I IN II�� N3• ./ iii: . �' ; "; ��es':�! t� •; ; •: •.ii lair. � : � � i a {. =__��■� ■��.�■tip —= � � ■ � Il"�'�;;�IIIII iill IIIN �ialll�' ■ ■ � IIIIIIiI IILUIIII f ILI � � %ll, "� , � - y '"�.'�■■. #�` : !�!'1111(fl Iill I'�I�,��' I; iiii �' %li;.:'•��. ,��, ■ �,��: I's��- ■.■ �'► J/,�r!1�� ,,, III Sit • OII Aft u FqI vj n _19- 1 Prepared by the Lansing Planning Dept. N City Sewage Treatment Plant �ngsley Court f DU/lD4 NDA#1 t.' St. Jos -ph: Park ----------------------- 1-asps DDDO110D DO T MAP 3 EXISTING &PROPOSED MAJOR LAND USE FEATURES Consumers Power Co. offices &storage Civic Center uuuu� Capitol Commons Oldsmobile 101 ' -20- Prepared by the Lansing Planning Dent_ Proposed North Lansing Historical District Riverfront Park II JU Hotel/ i Convention Center �1]u � Central Business District � 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. ZONING The accompanying map (Map No. 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 -- multi -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. 1 -21- HOUSING PROFILE AND TRENDS RIVER ISLAND STUDY AREA ' 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 con- ditions, 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 Housin 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 1940-197 Change Year Number of Housing Units Number Percent 1940 9,420 1950 10 579 ' 1960 11; 242 +'My + 11. 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 -23- Estimates of the housing stock between 1970 and June 1978 show a further loss of over 2,000units or a 26.'3 percent decline in the: River Island Study Area. 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 over 36 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 increase 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. Between 1970 to June 1978, the River Island area lost over 2,000 housing units (-20.3%) compared to a city wide increase of almost 6,,600 units (14.6%) and the region's gain of about 22,600 units (20.4%). -24- TABLE VIII COMPARATIVE HOUSING TRENDS 1940 to 1975 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 7,903a -2012 -20.3 51,447c +6178 +13.6 133,119b +22594 +20.4 Sources: U.S. Census a. Lansing Planning Department Estimates. b. Tri-County Regional Planning Commission Estimates. c. Gladstone Associates, Lansing Housing Market Analysis, 1978. Revised June 30, 1978 FIGURE 2 140 130 120 110 U, 100 0 0 90 80 70 cm Z N 0 60 U- 0 Oc 50 w m Z 40 30 20 10 0 1940 HOUSING TRENDS 1940 -1980 110,525 : o • J 91, 083 '•73,060 51 OF ,.••' 45, 277 ••..�•' 35,468 .,,.•••''� 28,887 23,269 RIVER ISLAND .. ............ r.�•` 10, 579 11, 242 ••• 9, 915 ...,•••. .•••'' 9,420 7, 1950 1960 YEAR SOURCE: U.S. Census 3,119 ,447 78 1970 1980 0 -26- FIGURE 3 RIVER- 15LAND •HDUSIWG UNITS ,AS PeRCSMT OF CITY $ REGI01J 90 80 f'o0 -- i 1 i I 1 � PsAcc!xjr op 10 • 9.2 l9q.o IsSo I�Go I�lc YEAR Sovace': a-S , Cen5�5 - IA,S� � tnn�+� �CPo, Men"I" Eslowtfnea5 T �- C:m,� �,+� i�ey -na.l -p(a� n i, � E ��+es s��. -27- 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 172 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. Project TABLE IX MAJOR HOUSING UNIT LOSSES 1960-70 and 1971-77 River Island Study Area Number of Housing Units -1970 1971-1972 State Highway Construction I-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. Vivian Riddle School 64 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 Em 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. 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 multi -family units were added to the housing inventory. Between 1970 and June 1978, new con- struction 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 bldg. 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 I-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 of 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 number of single family units has decreased by almost 1700 units since 1960. The majority of the housing removals in this area were 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 1500 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 in the River,Island area and the_ City. Tenure In 1940, 53.2 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 2600 owner occupied units because of the project activities enumerated earlier in -29- ' this report. In view of these losses, a reversal trend to renter occupancy occurred in 1970 with renters constituting 52.3 percent of the total occupied housing units. Estimates for June 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 a 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 Housing Units Chance 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 0.0 7 -11.9 7,903 100 -2,012 w Source: 1978 Exterior Survey of Housing City of Lansing Housing Units Types 1960 1970 Change 1960-70 Est. June* 1978 Change 1970-78 #, % # % # % # % # % Single Family 27,028 76.2 32,679 72.2 +5,650 +20.9 33,253 64.1 +574 +17.5 Two Family 4,076 11.5 4,270 9.4 + 194 + 4.2 4,293 8.2 + 23 + 0.5 Three to Four Family 2,625 7.4 2,552 5.6 - 73 - 2.8 14,319 27.7 +5,999 +72.1 Five and Over 1,738 4.9 5,768 12.8 +4,030 +231.9 14,319 27.7 +5,999 +72.1 TOTAL 35,467 100.0 45,269 100.0 +9,802 +27.6 51,865 100.0 +6,596 +1 .6 Sources: U.S. Census Gladstone Associates, Housing Market Study 1978 Lansing Planning Department Estimates TABLE XI TENURE TYPE DI TRIBUTION 1940 TO 1978 RIVER ISLAND STUDY AREA 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 1978a 7,903 3,266 44.6 4,049 55.4 Source: U.S. Census 1940 - 1970 a. Lansing Planning Department Estimates June 1978 -32- i Aqe of Housin The River Island area contained about one-third of the city's oldest housing stock (_built. hi -fore 1939) in 1970. In contrast, the Study Area contains only a 0.3 percent share of the city's newer housing stock built within the last 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 numler of older units (2,635) built before 11039 were withdrawn from the housing inventory between 1960 and 1970. Building permits in the River Island area from 1970 to June 197_8_1-is_teA_Wy 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 XI AGE OF HOUSINGI RIVER ISLAND AND CITY OF LANSING 1970 Year Built River Number of Housing Units Island Percent of Total _City of Number of Housing Units Lansing Percent of 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 -33- Conditions of Housin ' 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. - Sub -standard --A house that is rated in this category has'some major difficulties, but in most cases can be rehabilitated 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. -34- 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 32.5% Substandard 307 4% Critical 106 1.4% 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. -35- 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 the 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 I-496. Vacancies v 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.l In 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) domi- nated 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 at- tributed to housing which was in the process of acquisition at the time the census was taken, a higher turnover ratio in the area, a slow rate of absorp- tion 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, 1975.1 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 vacancy ratios, only the gross vacancies were considered in this analysis. 1Urban Housing Market Analysis, HUD, Linpold. 2State Journal, March, 1976. -36- V I VIA wi�wam TIM! ■ 'SEE%//. ®'///ICl/, //�i' •.,...:: � YX �% ■ %/, _ _ _ TABLE XIV VACANCY DATA RIVER ISLAND AND CITY OF LANSING River Island City of Lansin Total Housing Gross Total Housing Gross Year Housing Units Vacancy Housing Units Vacancy Units Vacant Rate Units Vacant Rate 1940 9,420 404 4.2 23,269 788 3.4 1950 10,374. 168 1.5 28,887 415 1.4 1960 11,176 742 6.6 35,468 1,910 5.4 1970 9,915 808 8.1 45277 2,634 5.8 19781 7,903 588 7.4 51:8652 2,750 5.3 Source: U.S. Census l Lansing Planning Department Estimates June 1978 2 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. 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 house- hold income. The higher value homes are generally occupied by higher income households that can afford the higher costs of maintenance and upkeep. 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 value 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 -38- 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. -40- $ 6,778 = 44.27 `15,313 (19 sales) U 17,525 = 41.4: (8 sales) $ 6,615 = r-1 f! $14,750 44 9� fl (13 sales)( $ 6,290 57.4. if I$10,965 � ` L(l110��sales)IN fi 7,9 . THH� Ju —$167 680 I= 46.6— 4401 90 17,950 �� —_ (22 sales) JO (2 sal es..)I UMjd L 1HUUHU 13 7 8TL39IH -5R� M U 44._ 17,774 (18 sales)) $10,212 � LLIL_JL_�C,22,837 = 44'-JU =� �, (33 sales) -I ,1LDL->$ 8,094= 48.15--- �L$ 46.1J16,808 16,583 (13 sales)' 05 sales) $12,690 92,837 44j7 (11 sales).1F MAP 7 1975 SALES RATIO (ASSESSED VALUE/ SALES PR-10E) TOTAL NUMBER OF SALES: 290 In H j 7,872 = U 8,258 43.1 39 sale u) u UUU a� 1OCJCJ C1r1r-I' Il $ 9,117 = 43.47 �$20,9.73 �(12 sales) UUuUMO $ -6_lU❑ $ , 400 ' r 7 ao nn 4.13� 8,333 = a L(3 sa . )i❑❑� $5 j1 L. _.JL�1�0� JC�C�C.��I'DE sales �� , 1-42S. l� � K•bllAL►.�.�rY�i11 Y� G -^7 � i '�Sa� w__ •{E."4"'�'--__--_._-- —n_! ZL'—bs�o�weswu+[+y!Vs�>•1 L+.� .�r.'��M �13,7�3 737.13�UDD==D�DI �_ 3 sales)L1OUa====L- 6 2260 -j 60.3 10,380 ,- (5 sales m0r.�7C 1107 F O. s No "I y f N V �jElE-1� CIL 0KM0 BILE Source: Assessor's records -41- 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% as compared with 9.4% 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. This represents 74.1% of the total employment of the City of Lansing. Almost 75% of the jobs in the City are concentrated on less than 12% 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 in 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 Node Manufacturing/ Commercial/ Warehousing f ce Government 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 -42- COMMERCIAL/OFFICE (NOP!-MANUFACTURING*) This category includes: 1. Retail trade 2. Service and miscellaneous manufacturing 3. Wholesale trade 4. Finance, real estate, and insurance 5. Transportation, communications and utilities 6. Construction ' According to the Michigan Employment Security Commisstion 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 4.32 ISource: City Assessor's Records I 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 design treatment, and the North Lansinq commercial area will get a design treatment which will preserve the historical integrity of the buildings in the area. IBy far the largest node in the area is the Central Business District which is bounded by Capitol Avenue, Shiawassee Street, the Grand River and Lenawee ' Street. *The Michigan Employment Security Commission refers to this category as non -manufacturing ' **This is an approximate figure because of high turnover in this area 6 It should be noted here that the CBD is the only significant non -manufacturing employment centers. 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 capitol. 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% 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 1800 persons or approximately 9% 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 +18% ' *Lansing CBD Situation Analysis, September, 1976 As can be seen from Table.XVII, this represents a 46% 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. ' It should also be noted that although the number of retail employees declined, overall employment in the CBD rose 18% 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. **Ibid, pg. 12 -44- According to the recent South Washington Square and Environs Study,* 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% of the Core Area. From Table XVII 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 (3) 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 q Occupied % Vacant Total Retail Use 79% 21% 100% Office Use 97a 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 signifcant. The 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. ' The district consists primarily of neighborhood commercial businesses such as second hand stores, bars, drug store, novelty store and various local and ser- vice stores. Also, there are several Community -wide businesses like the furni- ture sales, kitchen shop, and industrial type constructing services. ' West Saginaw Area This area is located along both sides of Saginaw Street between Logan and Stan- ley Streets. It consists of retail and service establishments. Althouqh the ' market area for this commercial area is larger, it is still primarily utilized by persons living in the surrounding neighborhoods. ' Willow/Grand Area This area is located at Willow and North Grand River. This is a commercial plaza that has experienced a rapid turn over in tenants. One gas station is vacant at the northeast and northwest corners of the intersection. Another station at this ' corner was converted in 1978 for office use. Presently, a medium sized 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 Company, December, 1977 -45- ' 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. (ter►%PM V.n Mori+ Government employment accounts for 13,500 jobs according to 1974 figures. In 10 years government employment has risen 108% 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. -46- ' 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% of all.manufacturing/ware- housing 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 4% loss, as of 1976. The number of persons employed, however, went up by 146 or .9% ' 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% are provided by two firms; Oldsmobile and Fisher Body. Approximately 18 other firms provide the other 848 jobs. The distribution of manufacturing employment is as 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 8—,-M ' 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 completion of its new section, employ approximately 600 additional ' persons. Fisher Body will increase its work force by one third or approximately 1500 new jobs. 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 indus- trial. 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. 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 proqrams 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 Lansinq 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 oriqinally West Junior High School and Kalamazoo Elementary School. This complex is located in the southwest portion of the downtown area. M•A7 1711AI1 U ICI V 1 q Prepared by Lansing Planning Department 1. Riddle E1. School MAP 8 SCHOOLS IN RIVER ISLAN 2. Genesee El. School(PUBLIC AND PRIVATE) 3. Verlinden El. School 4. Willow El. School 5. Bassett Units LIL 011MOUIL! ■ ■ ■ 6. Walnut El. School 7. Main St. El. School 8. Sexton High School 9. L.C.C. 10. Academic Interest Center Pill' '1 I :a 4-25-77 may_ 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% a year with a present enrollment of over 19,000 students. To accommodate the increased number of students and expanded curriculum, Lansing ' Community College has constructed new and rehabilitated older buildings to r 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. 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 25 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 are leased and cannot necessarily be counted as park- land 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. 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: 5� MAP 9 PARKS AND RECREATION CENTERS IN RIVER ISLAND M•47 1. Grand River Park 2. Coo 1 ey Gardens ° 3. Reutter Park 4. Kingsley Center Park 5. Ri verfront Park 6. St. Joseph Park —19 L°, -7. River St. Park 8. Kalamazoo Plaza ❑❑�❑ �� 9. Poxon II Park E 18 = 10. Wentworth Park 0❑ ❑ ❑ = 11. Waspington Mall F-1 12. Ferris Park 13. Durant Park �� 0❑ 14. Genesee Center E] 15. Osborne Park 16. Hull Court 20 ❑❑ ❑❑DD❑❑0 ❑ ❑ 17. Comstock Park s16 17 �❑ �18. Edmore Park �g�� m� ❑ Q Q Q 19. Bassett Park _1 � � � ❑ 20. Dunnebacke Park D°o rn� 2. 9W Pam: PA" — TIED ED❑ T UJ Uffl ❑ 23 poDCeE PARK. El=El ]15 ❑ 14 O O oBoa❑❑a ❑❑❑❑❑� o❑a ❑❑ F_T,0 �D O 'UnILJII III�Iy 00FI= ❑a❑❑DD❑96 11 AWE] OFIR 8 ❑ Do 3 D �❑D❑❑ ❑❑❑❑❑❑❑ ❑ � 7=EioEioEiEi====E1E1 a❑oa❑❑❑❑❑❑❑❑a ' lil,.�rl U lil yk� n UL OLMOUILL ,_]�❑❑❑ Prepared by Lansing Planning Department 4-25-77 -51- TN ' 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 part time staff members. tIn adiditon 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. It is anticipated that construction will be complete by the summer of 1978. 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. ' 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 or 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. ' SENIOR CITIZEN FACILITIES At present, few facilities exist for the exlusive use of seniors. One ' seniors citizen center on Ottawa Street provides outreach and transportation service to seniors in the Lansing area. ' 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. -52- Map 10 CHURCHES IN RIVER ISLAND I M•• 1 ' D 11 • I I G Il l v" n uL 08MOBILt a S t \ ADO= VN ' Prepared by Lansing Planning Department 4-25-77 -53- ' PUBLIC SERVICES C S PROFILE 1 ' 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 indluding 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 farious 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 1.1). 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 plant; (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 plan. 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. 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. a -54- M 4:1 r El E0 El r- yin rriZVI"' r it II if GRAND RIVER Map 11 SEWERS Q ti River Island Study Area- �. ............. District Boundaries Separated Sewer Areas - = Separated Storm Sewer 0 1❑ L El❑❑❑ L - L-- - I I [I El F1 F1 El I I--] �fj 0 Ll 0M MEIN M. M■M OLDSMOBILE MD=®�, � IL LANSING PLANNING DEPARTMENT -55- t1 N. 1 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 water.from 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 Map12 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. Map12 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. They are as follows: Undersized Mains 1. Verlinden Street - from Saginaw to Willow 2. William Street - from Clare to Logan 1 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 Capital 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 1 -56- , Np6n L r. LN, �..m m -MR 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 future, 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 Distributer 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. Overhead Service Lines are the most common type of electric line in the area. They are suspended from wood poles and are located as shown on Map 14. Underground Conduits are shown on Map 15. These conduits generally contain more then 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. 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 lightin 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 27or 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, -58- P to mi Map 15 M -1') ELECTRIC River Island Study Area WNI MAIN mmmmm=' 0 minim II on Sol a II 11 A ,1 U 11 1 y l n LANSING PLANNING DEPARTMENT UN 8 ❑a❑ EffirommEa000 ■ [/L ODMUHILE Ion ui 1 I N -61- 1 LIGHTING' 1 D ti River Island Study Area P oq •ti F,9 •••-••-••---• District Boundaries F 1 G / 4 N 0 \•- In �F 9 1 ❑❑D❑ 1 -a e Duo __ ❑ 1 DD❑❑� 3 0 ❑❑❑❑ i DDDD�� ❑❑ Ell *-110 DF� ao ❑❑❑ 1 DO F] 0 0 0 ❑^-�Q❑�c_� : — ❑❑❑❑❑ ._J El FI F7 [F F Ll;All ❑MI�IfN ❑� ❑ 1 ❑ .._._._ �❑a❑❑DD❑ , 1 1-49B Ow Le al ❑❑❑❑❑❑❑C�❑❑❑❑❑❑ 1 ma J�D 1 GgI.ND glVkq � ❑•. UL OB MOBILE 1� �❑❑❑ µ r� LANSING PLANNING DEPARTMENT L _.J 1 N -62- ! "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. The Board also considers traffic safety and crime prevention as an important partrof 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. Map17 indicates recently replaced and newly proposed lights. ! 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. Map18 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. ,! 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 25¢ per bag. Otherwise, garbage collection is provided by private venders. Fire Department The Lansing Fire Department serves the entire River Island area with four of its 10 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 #3 has been proposed with the relocation of station #7 just north of I-496 near Hillsdale and Logan Streets. Action on this proposal has been suspended -63- Map 17 LIGHTING River Island Study Area District Boundaries New Lighting pU El F1 F1 00 El El 00000 ED] D Do El El MaFT] -IF I E AL-IOL ILL".__ I El FJ F1 F_ F1 E-1 E Wm_ N Fft JL_ El 13-r-1 01 fall - Im 11 LANSING PLANNING DEPARTMENT N 64- fj M 4.1 41 j Map 18 STEAM River Island Study Area ...... a ...... District Boundaries Steam Lines .7771,77 �i_/i;;� JI If .11. II if �. 1. J I M1 4 JL F.- f AT f fjjmpt r x Lr J LJ I ILI, El ❑ a aidEl D .. Dour �� LIU Ell1 1 F-1 min 0 El El F1 j=EIL - ------------------- L; R 4N V UL DGMOWLE EID=l LANSING PLANNING DEPARTMENT -65- N -5- ' pending further investigation by the City concerning all fire operations within the City. 1 Police Map No. 20 ' 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. 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 Lansinq seem to rate highly on the various scales for effectiveness in their operations. MAP 19 U ;L_` f 11 All U 11 I V I 11+�M•` 11L 06MOMLF �000. Prepared by the Lansing anning Department ' -67 RIVER ISLAND FIRE STATIONS AND SERVICE DISTRICTS MAI MAP 20 KIVLK ISLAND POLICE REPORTING DISTRICTS AND POLICE BUILDING 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 Topography and noise pollution b 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 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. 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. SiT 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 d 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, notable 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. -70- 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 facili- ties 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 (2) major arterials and one reeway located -within the River Island. These include (1) Saginaw/Oakland (one way pair), (2) Logan Street, and (3) I-496. In addition to these major arterials, there are ten (10) 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 regionalt 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. I 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. -71- Unfortunately many of these collector streets in River Island are predominately residential. They are, in most 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 21) 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 I-69 interchange in'DeWitt Township. To date, the "Blend Alternative" through the City (to the Grand River) has been ' recommendedt* 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 circula- tion 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 (10) of the ' forty (40) worst intersections (in 1976-1977) were located in River Island (see Map 22). 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. . -72- ■ 1974 AVERAGE DAILY TRAFFIC VOLUMES* ON SELECTED STREETS IN RIVER ISLAND 0 M•43 Lj Li oaoQ o C o�aDoa� 0ODE 16,700 r_.. _.1 r 3 , 1, 03 0 ooaao�8_ _ DaDo[:: ri u 1 III1✓'—' `20, 000-3 `—' `— 27,000 100 M ul1D [� 200 0 m 0 0 D 22,000 u Li FO — =DDDODD aC6,7o0D - DDDOD� j a D 9,100 12 , 000 I Ed F-1 F, —11 1 W 1 Ell= T LE. 9,700 8 , 500 '11, 900 11, 800 J � D S�ODL IIIIII 15,000 D ❑ 10,500OU �C12,600 02 ID o 6,300 10,700 7,000 a *1974 Average Daily Traffic Volumes, Tri-County Region, Tri=County Regional Planning Commission. -73_ M ♦ 1 Accident rate calculated ° as number of accidents per ]F-]0 million number of cars through intersection. u1. o�Mbnl�r -74- 1 MAP 22 ACCIDENT RATES FOR SELECTED INTERSECTIONS IN RIVER ISLAND* 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. ' 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 (8) 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 4,,112 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 (6) routes are located primarily in the River Island Area (see Map 23). As *This figure includes ramps and surface lots, both public and private. -75- V; :I IJ 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 (6) routes there are bus stops approximately every two (2) 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 (4) new sheltered stops in the River Island Area. They would - be-1-ocated-i-n-the-proximi-ty-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; it 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. 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 (1) City route in operation after 9:00 p.m. (last bus 10:00 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. -77- 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 fact that bicycle-regi-strations-rose-1-79q-from-1-971-to-1-975-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 24. 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 Re ional Bic lce Transportation Plan. Both routes are located on ' resiTe-n-fial streets away from major autom-Wile routes and are part of the Initial Phase of the Lansing Bike Plan. Specifically, they are located as follows: (1) north and south a ong Denison 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. 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 (2) 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). -78- T"n I i i TTl / Y.IW ...iii WiA W A BAN - 1 oil ■ E_: !_ 1111 I I I; :-1 ■ -A =� IN Wn no II 11lll l.l.l 111 I11111,11111. 1. 1111 111 11 1� fzj�11111 4AW 9*.-* ! ' �-- I1111111111 1.1 1111111111 Iltllll .11 sill 1� i *A lUs x IN .� .' 1 1, 111 tilt. 111111 1.1 t..l.... ... MINIM 111111 1111.11..... 1.... t.l 1 ' Plans proposed for the Neighborhood Development Area (NDA) #1 attempt to further accommodate pedestrians by recognizing the 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. i— Automob-it-es-and-Taxis-are -the-primary-modes-for-transportinq-people--between the airport and points of origin/destination. M Assets, ns, and Strategies ASSETS, PROBLEMS AND STRATEGIES The background material has been used by the committee any' 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 formula- tion 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 that the listings may be incomplete but it is also felt that the major developmen- tal and growth issues have been accurately identified and considered. iThe relevant River Island Area Policies which were developed to guide in the formulation of various strategies are presented at the beginning of each func- tional section to enable the reader to review proposed strategies in relation to the established�tity-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 exper- tise 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 applica- tion 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 exist- ing situation within River Island. Housing I 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 prnarAms planned to bring about pos- t tive growth and development. The success,of programs and strategies formu- lated 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.residen- tial areas. Neighborhoods in River Island are predominantly single family in nature and. generally exhibit homes that are in good repair. There are, however, varia- tions of housing type and condition that have teen identified and many ■ problems merit treatment in this master plan. i The purpose of this section is to discuss assets and problems of the existina ' 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 strateg in more detail in Appendix V. y concepts presented here are developed 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. Provisions of public improvements which are sensitive to the in- dividuality and character of existing neighborhoods. tRedevelopment Designate areas for housing redevelopment to: - Eliminate haphazard land use patterns. - Promote efficient land usage. ' -82- ' - Improve the quality of the housina stock. - Enhance the visual character of neighborhood areas. ' Encourage new housing construction which would: - Diversify 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 housinq demand. - Promote stability in population.. - Provide mixed use residential/commercial structures in the central area. Encourage sensitive site and architectural design by: - Promoting successful integration of new housing within the surrounding area through appropriate height, density and design. - Minimizing any adverse environmental impact on adjacent land uses. - Providing usable oreen 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. ASSETS 1) All of the housing areas are close to the Central Business District for emp oyment, 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 interestina architectural design can be found scattered throuqhout River Island. ver 70 percent of housino stock ' is in standard condition (LPD, 1978 Survey). -83- STRATEGIES (0-6 YEARS) The following strategies are recommended to assist in preservation and main- tenance of the standard housing stock found in River Island. These strategies directly relate to the assets presented above. 1) S stematic Code Com liance Utilize a set of neighborhood standards (Including but not limited to City Housinq Codes) to be developed by the Lansing Planning and Building Departments working with citizen qroups. Concentrated code compliance programs should be used in areas with greater degrees oofdeterioration. This includes areas 1, 2, 3, 4, 5, 6, 8, 10 and 11 (see map25) Areas of primarily standard housing will require a scattered enforcement policy only (areas 7 and 9) as illustrated on Map 25. 2) Adopt an all sales ordinance which would require that housing throughout the City be inspected for code violations by the appropriate inspectors at the time of sale. 3) Nei hborhood Maintenance Organizations initiated by citizens with supporting funds allocated y the municipa ity and by local participating lending institutions. Technical assistance would be contracted for with a private non-profit corporation such as the Neighborhood Housing Services Corporation (NHS). 4) Investigate the p historic res�erva e e�-and state sideration should HOUSING PROBLEMS tential for including individual ion leaWation to provide tax i grants for restoration urposes. be 7, 8 and 10. (Map 255 homes or areas under ncentives and to attract Areas of primary con - The following are problems identified by citizens and/or the Planning Depart- ment 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 recommended strategies designed to address that problem. PROBLEM I 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 V in the Housing Profile shows general housing conditions according to block. STRATFATFS Generally two types of strategies can be applied to non-standard units. Reha- bilitation 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 ', ON, I ko 'I 0 ' recommended. A further differentiation is then necessary between major redevelopment or reuse and selective redevelopment areas where selective ' c earance is used in conjunction With rehabilitation efforts. Map 26 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.__ Maa _27 will outline those areas recommended fo_r major redevelopment and those where,selectiVe ' redevelopment should take place in conjunction with other -maintenance or rehabilitation programs. tREHABILITATION (0-6 YEARS) 1. Systematic Code Compliance. See Housing asset strategies. 2. Adopt an all sales orr nance. 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 sustainina a good exterior appearance in a neighborhood. ' 4. Sugport changes or interpretations (utilizing the Mayor, Council and Planning Department) of State legislation which would allow local ' 5. Utilize the Neighborhood Strategy Area Program to address the problems of landlords utilizing pu c funds to generate private investment ' by guaranteeing rent subsidies over a period of time. 6. Support amendments—toexisting Federal, to and l I tax laws ' (utilizing the Mayor, Council and Planning Department) to allow tax abatements, credits or rebates for rehabilitation improvements to housino units. ' 7. Use federal, state and local funding r m to promote rehabilitation and maintenance of the existing housing stock see Appendix I for ' complete listing) such as: a. Community Development Funds (under Sections 1, 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. 150 I 1/ a il7■■0_■■.e N i►:� i■�■■■■■■ ■r,ir, I -- ME - 04, ' 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. ' C. Major Redevelo m n- where entire areas of housing are removed and reused for new housing or some other purpose. ' Map 27 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 re eve opment 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 27 . Housing in Area 5 will also be similarly treated in conjunction with rehabilitation and•code enforcement activities initiated ' under the NDA program. 2. Change lotting patterns by selectively clearing blighted structure and ' rearranging existing homes to provide more efficient and attractive use of the land. This would be a joint effort between the Planning, Buildina and Housing and Redevelopment Departments. ' MAJOR REDEVELOPMENT STRATEGIES (0-6 YEARS) 1. Amend the Zoning Ordinance to provide a catenory for mixed use development ' in housing -area 10 Map 27 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 Capital Commons (Area 9, Map 27 ). ' 3. Consider alternative methods of funding the acguisition and relocation of all properties in Area 7 (Map 27 ) for the purpose of possibly constructing ' a parking ramp for State of Michigan and Oldsmobile employees. (See Circulation/Parking Section) MAP 27 I� ti River Island Study Area 4. Acquire substandard housing in the North Lansing Commercial Area between Turner and Center streets and redevelop the land for other uses. (Area 3, Pap 27 ) MAJOR REDEVELOPMENT STRATEGIES (7-12 YEARS) Acquire and remove ho ing in Area 4 for industrial purposes. Financing and phasing of the project to protect residents should be explored and considered by the Planning Department 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. PPM1 FrA 9 [louses 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. rSTRATEGIES (0-6 YEARS) 1. Ado t'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 by the 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 asps. Conver- sion to higher density exerts 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 25 ). STRATEGIES (0-6 YEARS) 1. Systematic Code Compliance to identify and eliminate illegal conversions. 2. Create a Desi n and Site Plan Review Process which would require the approval of the Building and Panning 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 t e west and to concentrate office uses near the Central Business District. PROBLEM 5 Homes are subject to periodic flooding particularly in housing areas 1 and 10 a onq the Grand River see Man STRATEGIES (0-6 YEARS) 1. Institute the Flood Plain Warning System. -91- PROBLEM 6 11{A I V 1 1 4 {. �: b1 UJ11 I G C) 1. 1 1� Mple dwellings many converted from single family) where the trash recep- tacle occupies several spaces in the parking lot without fencina or screening. This has been particularly noted in Housing Areas 1 and 2. (See Map 25) 1 STRATEGIES (0-6 YEARS) 1. Amend the Zonii areas for multiole dwellings. This would be administered by the Plannin4 Department as part of the Site Plan and Design Review Process and Zoning Code Enforcement Responsibility. 0 -92- Economic ECONOMIC DEVELOPMENT In this section, the major components of economic development will be discussed, these include: 1. Business/Commerce 2. Office 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 28 depicts the general business/commercial nodes, office areas and industrial facilities. 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 en- couraging: -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, threatres, 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. -The provision of adequate loading and delivery facilities. -The development of multi -use structures. -The extension of the Washington,,pedestrian mall to the three or four 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. -93- 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, Count amend Other Governmental Offices - Where the administrative ' functions of allmunicipal epar men s shall remain in the Central Area as well as encouraging appropriate functions (i.e. courts) of the county govern- ment and other governmental bodies to locate in the Central Area. ' -Financial Offices - Where emphasis shall be placed on the Central Business District o ans ng as the regional center for all major banking and financial ' institutions. -Professional and Supeortive Services Offices - Where effort shall be made to ' retain existing and develop new professional offices (i.e. dentist, doctors, lawyers, lobbyist, 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: P -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 loading facilities -Adequate buffering and screening from less intensive uses. -Adequate access to the major street system. 94- 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 28) ' The eight acre Logan -Birch Triangle with good transportation access will be availa- ble 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, the Chamber of Commerce and downtown busi- ness to develop a viable site plan for the Logan Birch Trian le 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 28) 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. 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 28). 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 maJo-r--no—r-t-F-south pedestrian link between the CBD and other major acti- vity centers such as Lansing Community College. ' 4) Several older buildings with interesting architectural features are located m e UN Wh1ch enhance the c aracter and style of -the area. ' STRATEGIES (0-6 Years) f 1) Advance and suEeort the development of the waterfront as outlined in the ' Commun ty Facilities Section. 2) Support the development of the South Washin ton Mall to increase pedestrian ' access throughout the downtown an to beautify the area. 3) Provide design and technical.assitance through the DDA and Planning Department ' to Eusinesses wanting to do faca a restoration in the CBD PROBLEMS ' Area Specific Problems ' Central Business District Commercial Area (See Map 28) PROBLEM 1 ' Lack of activities on weekends and n evenings is a major problem�of the Central ' Business District. Lack of activity an early closing,times are primarily deter- rents to persons wanting to purchase goods or services in the CBD after 5:30 p.m. When a major event or activity occurs, people are attracted to the Central Busi- ness 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) ' 1) Develop a marketing program through the Downtown Development Authority to ' romote downtown activities. This would necessarily involve cooperation rom the business, cu tura and recreational concerns in the CBD. -96- One element of the marketing strategy might include a system of encouraging patronage, using a cooperative agreement, between various concerns, that is, if someone goes to a play downtown, they may receive 10% off of 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. 2) Provide the Personnel necessary through the Downtown Development Authorit to promote, coordinate an implement programs, esya s an act v t es n - the downtown. 3) Riverfront Park should be utilized more heavilX for concerts la s, festi- vals, etc., in conjunct on Mh downtown activities. 4) Continue to pursue through the Economic Development Corporation and Down- town Development Authority the development of the 100 block of North Washington for a hotel/convention center complex. 5) Adopt the entire Phase I development of the South,Washington Square and Environs Studv which includes a variety OT elements which are armed at providing more con- ven ence for 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 eit er 2a ver ' to e r ome or picked up at their convenience when finished shopping. iD. Provide for an automotive service center on the perimeter of the CBD. It should be note ere tat the River sland 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 automobile for service or repair. E. Free bus loo_p for state em to ees. This will be discussed more fully n t e Transportation section. 6) Vigorously ursue the development of another major de artment store in the Utilizing the municipal, DDA, Luc and private resources necessary to accomplish this strategy. PROBLEM 2 Ex sure of the elements during inclement weather detracts from the desirability of downtown as a pr ncip e s opp ng location. eople do not like to have to walk outside between stores to shop in inclement weather. -97- STRATEGIES (0-6 Years) 1) Adopt Phase II of the South Washington Square and Environs Study Which generally endorses t e oT ow ng: A. Eventual overhead enclosure with second story pedestrian passage ways to all ramps. B. Eventual removal of all automobiles from the mall. PROBLEM 3 Lack of access to telephone and restroom facilities was identified as a major rr tat on to customers in the CBD. There are few phones available to the public out of doors, and few accessible restrooms open to the general public. ' STRATEGIES (0-6 Years) 1) Support the construction of a comfort station with an information desk in the South Washington Mall as proposed by the South Washington Square and Environs Study. The Comfort Station should include restrooms, telephone, information booth and be patrolled regularly by police officers. PROBLEM 4 Competition for parking spaces in the South Washington Mall is created by a demand -from both customers and employees wanting to park as close to their destination as possible. Some additional competition occurs when delivery vehicles occupy space(s) for long periods of time or double park behind le- gally parked vehicles. Cars have been observed waiting along Allegan, Wash - tenaw and Kalamazoo for 20-30 minutes to park in the Mall. STRATEGIES (0-6 Years) 1) the DDA. PROBLEM 5 (until Some buildings in the Central Business District are in need of maintenance and or renovation. Many of the build5g facades in the CB5 require restora- t on or re a tation. In many cases, actual renovation would not be neces- sary; cosmetic changes would be sufficient. STRATEGIES (0-6 Years) 1) Provide design and technical assistance through the DDA and Lansing Planning apartment to businesses wanting to do facade restoration. This could in- clude assistance in eve op ng working drawings an2 construction specifica- tions, possibly. -9B- PROBLEM 6 Deficiencies in manX CBD buildings, according to present city codes which make utilization'o 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 and office structures in bring the structure into codes. PROBLEM 7 fund through the EDC to assist the owners of retail the CBD to complete renovating work which would compliance with present city building and fire Lack of exterior maintenance particularly alon South Washington. With cars n the south mall it is difficult to provide adequate snow removal or street sweeping particularly by conventional machines. In addition many persons iden- tified 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 rovide regular daily maintenance of the CBD. This program should include dally periodic sweeping of the sidewalk an street as well as additional attractive litter containers. PROBLEM 8 Fear of crime in the CBD is a serious problem. Although Lansing Police Depart- ment 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 (See Map 28) 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. 1540 PROBLEM 2 O Parking and interior circulation behind the buildin s on the south side of the street need improvement. There is no signed, coordinated c rcu ation pattern particularly around the bank. Some of the parking areas are not stripped 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 W. Saginaw Commercial Area Plan. The plan would .prov a funds for expansion and improvedappearance 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 south side of West Saginaw Street Center. 2) Establish a Commercial design assistance task force to promote improvement of the appearance around commercial areas, Work with us nessmen to redesign the Willow Plaza ana the West Saginaw Commnercial Area according to a coordinated design concept for building facades and signage. Consideration be given developing these centers with a theme concept similar to that described for the North Lansing Commercial Area. The.desiqn center would be responsible for providing advice and information concerning design criteria and financing arrangements available to local merchants. Commercial Area C: West Saginaw at City Limits PROBLEM 1 The west end of Saginaw Street has experienced strip commercial develgkment that resents safety and design problems. The excessive number of curb cuts required to provide access to each store situated along the "strip" may constitute a traf- fic hazard. Strip commercial development detracts from the appearance df the surrounding area. STRATEGIES (0-6 Years) 1) Investigate the possibility of combining several businesses in the strip com- mercial area of W. Saginaw into mlnf-sh n centers. uc action would enable development of share par ng areas and reduce the need for multiple curb cuts of 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. Commercial Area C,and D (See Map 28): North Lansing Historic Commercial District and other Commercial Nodes PROBLEM 1 Many structures which are suitable for commercial use.are presentlX vacant. Vacancy rates in North Lansing and other areas are high. The Incidence o vacant commercial buildings can be linked to a lack of patronage, physical deter- ioration'and poor reputation. -100- ' STRATEGIES (0-6 Years) 1) Designate the North Lansing Commercial Area as a District to be established ' under a local historic ordinance. The city n cooperation wit businessmen in the area could initiate of orts to develop such a district accordingxto an appropriate theme in keeping with its historical heritage. Design cri- teria should be established to promote coordinated development of both ' buildings 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 Assets. ' 2) Vacant structures and marginal commercial activities must be dealt with if commercial centers, and especially North Lansing, are to become suc- cessful once again. Strategies should include programs that would encourage_ ' reinvestment into such areas. A. Investigate the possibility of acquiring grant money through the local Economic Development Corporation (EDC) to provide capitol loans at favorable interest rates that would encoura a nvestment In commercial. ' areas of River Island. Matching funds, —If required, Would come from t—igeneral 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 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 applying public funds to uegrade the surrounding street and publicly owned arkin areas. Acquire and apply grants available through various federal programs for the purpose of improving curb, gutter, streets and sidewalks. Use the Capitol Improvements Program to finance such improvements. OFFICE USES ASSETS Office space in all four office districts is in close Rroximity to the CBD, an is reasonably priced in comparison wit rents paidin other parts o t e city for similar facilities. (See map 28 for office districts 1, 2, 3 and 4). PROBLEMS Conversion to office changes character of nei hborhood. 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 surround- ing residential uses. The intensity (measured by the number 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 suffi- -101- cient 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. Conver- sion 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) 1) 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 re- sidential 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 y the Planning and Building Departments pr or to any conversion of resi- dential 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 receptacles. Office Area 4: State Governmental Complex ASSETS The Capitol and the adjacent complex the Central Area, are a ma or se men represent a potential mar at for dow ' particularly the lighted dome are an of Lansing, STRATEGIES (0-6 Years) provide a substantial portion of the market nr nwn+nwn h s zvwn nousing, me Capitol buiT3 easily recognizable and striking the jobs in iesses , and ng and symbol 1) Continue developing liaison relationships both on a technical level (Planning epartmen and political leve(Mayor and City Council) with allropriate state agencies and 129islators to insure the continued growth and expans on Bf the State Capitol Complex in central Lansing. PROBLEMS Continued growth has cause concern over circulation, Parkin and land use. The exist ng state Master Plan indicates par ng of er than that prov eneath 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 "2 __ _ ' 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 updatingof 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 building: already proposed and for future construction. This strategy will be helpfu' n developing compatible land use and assur ng adequate access. ' 3) Explore the potential for state -city cooperative efforts (Bureau of Facili- ties, Lansing Planning Department) to return the eastern portion of Ferris ' Park to a park. ' INDUSTRIAL USES (See Map 28) 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 as expressed a desire to expand in e c ty, 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 re- developing such areas for industrial use. It is anticipated that the Main ' Street School area directly west of the Oldsmobile Plan 1 Complex will eventually all be used for industrial purposes. In the interim the neighbor- hood is subjected to visual and noise pollution. t STRATEGIES (0-6 Years) 1) Assist in (potentially through the EDC) the screening, landscaping and berming necessary to adequately separate and protect the Main Street School area from surrounding industrial uses. This buffering plan would include an acquisition program along the exterior streets (see attached map) sufficient to construct a berm to protect the neighbor- hood. The-bdrm is necessary in the short term to protect the area from the encroachment by industrial uses which has already occurred. STRATEGIES (7-12 Years) 1) Designate the Sunset Street Area as an industrial park and establish a pri- vate and public cooperative effort to initiate eve opment or improvements conducive to expansion on available vacant land. PROBLEM 2 Truck traffic along Olds Avenue, Glenrose, Comfort, Walnut, 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 industrial area 1. These conflicts occur as a result of the large numbers of -persons leaving one central location at the same time. It includes pedestrian, bicycle, motorcycle and automobile conflicts. Primari- ly along St. Joseph, Pine and Walnut. STRATEGIES 1) Direct em to ee traffic to the major a 1-496) n order to eep traffic out o PROBLEM 4 ials (Logan/Birch, Olds Avenue and Pecs estrian areas. Potential industrial expansion into sound housing near or into areas designated for other purposes. STRATEGIES (7-12 Years) 1) Recommend relocation of industrial concerns seeking to expand in Area 8. Ac- commodate relocation -to another part of the city by providing a suitable site with appropriate capital improvements. 2) Assist in the eventual acquisition and relocation of Bo d's Trucking to a more appropriate location. -104- Plausible Future (Beyond the time frame of this plan) i ' It is plausible to expect that the Main Street School area will eventually be used for industrial purposes but not until the 10 year scope of this project has elapsed. With this understanding, it is recommended that assistance be given in acquiring and relocating the Main Street School residents when the industrial uses are ready to expand and when there is sufficient repraCemeht'Housing available within their ability to pay. 1 Until such time, berms and otherprotective measures. should -be taken to mitigate any environmental problems _exper enced by residents as a result of industrial expansion. i i . 1 1 1 i i 1 i ,i i . 1 -105- r minim f -1 I --mlilism- ----- ---- - ----- Community Facilities COMMUNITY FACILITIES ' The existance and availability of community facilities is a great asset to River Island and the city. From churches, theatres, libraries and three (3) ' 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 facilites 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 atten- tion 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 water- front 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 activi- ties during non -school hours -improving the school playgrounds to meet both educational and neighborhood recreational needs -107- 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 move- ment throughout River Island. Encourage the contined existence and expansion of the institutions of higher learning in River Island by: ' -working with the respective expansion to assure adequate housing institutions to anticipate and plan for parking, utilities, transportation and Encourage churches in River Island to remain and to make their facilities 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 educat4onal, community and cultural activities 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 and convenience of users and surrounding residents -108- tEncourage 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 s, litter, na equate y ma nta ne pay 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 participa- tion in maintenance of neighborhood parks. This program would be administered by the Parks and Recreation Department. 4) Delay the purchase of additional park land until a regular maintenance schedule ' is completed. PROBLEM 2 There is a lack of coordination of neighborhood park activities and equipment to the 4pulationo certain neighborhoods. In particular, suggestions Of the citizen com- m1ttees 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) flOsborn Park - some equipment for grade school children 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. -109- Ll 2) Formalize a process wherby residents and Parks and Recreation Department can interact to determine what park equipment best serves the community. 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 pars and schools. STRATEGIES (0-6 Years) 1) Promote park and school activities with an aggressive information campaign in- cluding but not limited to advertising, public service announcements, regular releases toeneighborhood organizations and newspapers. The Parks and Recreation Department with aid from the Lansing School District. PROBLEM 4 There is a general under utilization of school facilities especially in the summer- time. 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 utilizin the same techniques as those to be used for the parks (Problem 3, Strategy 13. PROBLEM 5 The Riverfront Park is under utilized. STRATEGIES (0-6 Years) 1) Actively promote and �nurage many more activities in Riverfront Park. Examples of activities are regatta ')and canoe races. These promotion activites can be carried out by the - ar-ks 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 passers by know where the park is located. PROBLEM 6 There is under utilization of all waterfront areasalong the river in the River Island rea. -110- 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 especially street ends at the river. 2) Support activities that promote and encourage use of the river. 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 paved 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 acquisition 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 Genessee 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 pavinq mater- ials in the North Washington Mall. STRATEGIES (0-6 Years) 1) Design and develop additional green s aces in the North Washin ton Mall reaThis -would pars; cu ar y app y o e _,proposed extension of We ma . Tn addition, any future development in the CBD should be required to provide some "green areas", this can* be done through the Downtown Develop- ment -Authority and the Planning Department. -111- Public Services 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 re- developed areas when constructed to: -lessen the number of physical obstacles within the street right -of way (ROW). -enhance the visual appearance of the neighborh000d. Storm and Sanitary Sewers Promote a program to upgrade the sewer system in order to eliminate water pollu- tion 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. ISteam 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 lightingprogram whose objective is broadened to include the concept of right-of-way (ROW) lighting by placing equal emphasis on illuminating both the streets and sidewalks. Promote a residential street lighting program which will be suitable and appro- priate to the character of the neighborhood and acceptable to residents. ASSETS Public Services are generglly 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 miti- gate problems will also be benefits to enhance the availability of the service. -112- STRATEGIES (0-6 Years) 1) Continue to providi rogram. Dr Public Servi the Capitol Devel 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 custo- mers. 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 rea. 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 wwind, solar, etc. ASSET Lighting on the Capitol Dome is a major asset which residents find aestheti- cally pleasing. ernerrntrr 1) Support the continued lighting of the Capitol Dome as a symbol and land- mark of the Central Area of Lansing. ASSET Lighting on N. Washington Mall was also identified as adequate and appropriate. earn a rrn t rr . 1) Continue to provide the present levels of lightinS on N. Washington Mall and investigate the potential or using those lights on other streets in the CBD. ASSET Overall police and fire services are rated high as bei and caDabI e. lly efficient -113- PROBLEMS PROBLEM 1 There are sidewalks streets and curbs which need re air and/or replacement. Attached s a map Indicating areas requiring curb and gutter 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 r2gular pro2ram of sidewalk street and'curb repair and Fe —placement. Prior to institutiono 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 s, part cu ar y on Washington, Capitol, Grand,Logan, WMow other high volume streets). PROBLEM 2 Street names and numbers are not consistent. Street name signs are not always located n the same position at the intersection making it difficult and confus- ing to locate. Street numbers are re uired 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 incadescent" street lights that need re lacement. Thesg lights are o and reguent y.ma unct on and are wired in a series. When one light goes _„out, all Lights in that ser_tes also goo out. Howe'- __ the present street lighting da stanrds ardfxtures are -favorable hy_- residents over , any more modern �ty -d.- AV eas - that .6nain._o]der.:-incandes_cent lighting are shown on ma-p 16 - in the —background ' STRATEGIES (0-6 Years) sectio(n: 1) Develog a procedure for neighborhood selection of street lights or deflnlnq nei.q or oo s. -114- PROBLEM 4 Non-residential mast arm lights have been installed in residential areas. These lights are too high and the lighting intense for residential use. Trees are often damaged when trimmed to permit the high mast arm lighting intensity. STRATEGIES (0-6 Years) 1) Work with the Board of Water and Light to adopt a policy of providing street li hts in scale and character with the surrounding land use'regardless o t e existence of wooden poles. The maximum height suggested for residential lights is 15 feet. 2) Street Lighting.- .upport a city ordinance to establish uniform street light- U'ng, 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 surroun ing land use and the functional street classific tion. Street lights in residential neighborhoods should be placed at a level of no higher than fifteen (15) feet. The Board should initiate a program whereby citizens affected by changes in lighting systems would be noti- fied 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 lumenaire, 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 Light's regular stock if: (1) over 50% of the property owners of a defined area petition and (2) they are willing to pay a special assessment. 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 ' n other areas where feasible. PROBLEM 6w siv inw 4w-CCI., ana nomes curing neavy raid, Different areas are affected at different times. In addition, untreated water which 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 allgrnatjve methods of meeting federal guidelines for sewers. These alternatives include ' separating sewers or developing storm water retention basins. -115- STRATEGIES (7-12 Years) 1) Construct a series of storm water retention basins. Costs associated with storage facili uld 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, espec a y after business hours. STRATEGIES (0-6 Years) 1) Increase the number of outdoor telephone booths in public areas such as the North an outh 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 existingstations as tr emergency and first_a techniques. ininq centers for 3) Utilize the existing stations as Communi or as some other comm un ty ac T1 ty. PROBLEM 9 identc to loavrn 1 ters, Senior Citizen Centers 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. -116- ' STRATEGIES (0-6 Years) 1) The City must finalize and adopt the "Criminal Justice Facilities ' Study" conducting during 1978 which proposes to co -locate the courts and police activities in a new building in downtown Lansing. It is essential that both activities remain in downtown Lansing due in close proximity to; 1 the center of the community; (2) related legal offices ' and services; 3 other established governmental and commercial facilities. ' 2) Acquire the property required for constructing the new Criminal Justice Facility on River Street, 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. -117- 19 Land Use and Environment ENVIRONMENT AND LAND USE ■ The environmental assets and problems noted in the following section are perceived si ua ions t at 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 programs are explained in more detail in Appendix V. 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 and improving the Grand River and its banks. - 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. -118- 1 - Utilizing design and landscaping techniques for buffering and/or screening purposes between different.land uses, where appropriate. ' 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 revitali- zation 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 an o ers scenic views and recreational opportunities. 3) The residential areas have "character" and "herita e" and are well worth Preserving.' his includes architectural sty -ling and design variety) -119- 4) Riverfront Park and River Street Park are areas that provide clear vistas of the river an create a sense of openness 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 River Island has a fairly concentrated la out of types of land use that might be considered detrimental to residential living. Concentration 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 29 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). 2) Install screening, fencing and buffering along right-of-way of major thoroughfares abutting resi ential areas. The four major thoroughfares requiring such treatment along selected stretches include Logan Street, I-496 (St. Joseph and Main) and the Oakland/Saginaw one way pair. 3) Amend Zoning Ordinance to require site plan review and approval before buy ing permits are issued for the purpose of converting single family structures over to multiple or office use. Specific areas are shown on Map 33. (Also see housing proposals, Appendix I.) 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. 5) Adopt a Neighborhood Conservation District Ordinance Suggested areas for application of this ordinance are shown on Map 30. ENVIRONMENTAL PROBLEMS The types of problems presented here are felt to detract from the quality of life within the District 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. -120- MAP 29 River Island Study Area :.....N..... District Boundaries ENDED FOR II o II II (� jj \AREAS SCREENING �AND BUFFERING IIN [,',I Mimi =I 111111 NINE MIN I ION IV fm 111111011cm logo NMI! al Immu min mmm Ion liiiN� iiioi�`�1��1 ............ _ : �i mill' -11 110� *%*4 ►AREAS REQUIRING SCREENING AND BUFFERING N ■MAJOR PARKING AREAS REQUIRING SCREENING AND BUFFERING LANSING PLANNING DEPARTMENT • ****MAJOR STREETS REQUIRING SCREENING AND BUFFERING 0000 *TREATMENT (ON SELECTED STRETCHES) L1.21- MAP 30 River Island Study Area ............. District Boundaries DESIGN AND SIGNAGE PROBLEMS - COMMERCIAL AND BUSINESS DEVELOPMENT �0aUO�uuuu 1 u�ua u DODO 00 'y ooaa 10001100110 3 FT�7a UNCOORDINATED STRIP UNCOORDINATED ' DEVELOPMENT DESIGN/SIGNS JD A ott M•13 goo :■��1■ m 0 iIm ■ �10 kill ■::mom■ WON POOR DESIGN/ UNCOORDINATED SIGNS MANY INSENSITIVE DESIGN ALTERATION SIGNS IN RESIDENTIAL AREAS MINI :: : ■ ■ IN ; SUGGESTED AREA FOR i APPLICATION OF NEIGHBORHOOD CONSERVATION ''"' DISTRICT ORDINANCE A LANSING PLANNING DEPARTMENT PROBLEM 1 Air, noise and visual Pollution caused by industrial activities. Paint smells from isher ody 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. Air, noise and visual problems are associated with other centers of industrial activity including the Sunset Street area, the fly ash disposal and junk auto storage yard situated at the end of Comfort and Glenrose streets, the Consumers storage yard located off Willow Street, the north Lansing area and the Eckart Street power station. (See Map 31) STRATEGIES (9-6 years) 1) Install screening and buffering (see Environmental and Land Use Asset trategies). 2) Dev l6e and im lement a screeninIg and buffering ordinance that will prescribe minimum standards for treatment of visual pro ems in and around new industrial or commercial areas. Standards could include recommended percent of view to be blocked, types of screening materials to be used and financial responsibility associated with screening and buffering between industrial and commercial and residential land. 3) Promote the active participation of the Economic Development Corporation (EDC) and the Lansinq Chamber of Commerce to provide leadership an 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 pollutiom problems. 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. TRAIN & INDUSTRIAL NOISE/POOR VIEWS SMELLS FROM SEWAGE TREATMENT PLANT AND RIVER %, D M•13 FISHER BODY PAINT SMELLS - AIR.POLLUTION INDUSTRIAL' AIR/NOISE POLLUTION FLY ASH DISPOSAL/JUNK AUTO STORAGE AIR -VISUAL PROBLEMS MAP 31 River Island Study Area qVISUAL PROBLEMS.--.......• TRUCK & EQUIPMENT STORAGE YARD UU 00 mn a oa 11111111111m District Boundaries AIR, NOISE, VISUAL POLLUTION CREATED BY INDUSTRIAL ACTIVITIES MIXED USES - INDUSTRY, COMM., RESIDENTIAL NOISE/VISUAL ■■■■ME MENNEN ■ rl Imo.■��.�■■■■■ ��11■■�N■ 11110 sing ME in ■■�■■�■■ MIN ■■■ ■■■r, 1) ■■■ OLOMMODILE ECKART STATION NOISE/AIR III;I1 II N LANSING PLANNING DEPARTMENT 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 resi- dential 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 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 rest ential neighborhoods will be reduced. 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. IPROBLEM Visual pollution is related to large parking areas. (See map 29) I STRATEGIES (0-6 years) 1) Screening, buffering and landscaping. 2) Initiate studies to find alternative solutions that would help reduce visual pollution. ' PROBLEM 4 Poor design of commercial and business buildings and centers is a source of -125- 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 Saginaw Street are commercial centers in need of design improvement programs (see map). 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 insensitive to historic or architecturally significant structures and often are out of character with surrounding residential use (see map.30).,- STRATEGIES (0-6 years) 1) Amend Zoning Ordinance to require site plan review (see Environmental and Lan se ssets). 2) Actively promote development or renovation of commercial and business centers 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 at they relate to the surrounding land use. 3) Adopt a more restrictive Sign Ordinance related to size, brightness and ' placement of signs in windows anT 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 i Environmental issues are directly related to the several uses'.of land inventoried within River Island. i 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 -126- of conflicting land use in River Island are shown on the map 29. STRATEGIES (0-6 Years) 1) Many parcels in the North Lansing Commercial Area should be rezoned from existing li t industrial distripts to commercial or residential districts. e present zoning c ass cat on encourages development out of character with the historical buildings and park land located there. Implementation of rezoning would support the concepts of historic commercial district. 2) Screening and buffering. STRATEGIES (7-12 years) ' 1) Relocate industrial concerns seeking to expand facilities or remove housing units a Jacent to exaandina 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 experi- encing 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 theexisting Zoning Ordinance for particular zoning districts and open space or yard area is virtually nonexistent in some neig borhoo s. 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) Acquire and redevelop the area bounded by Logan, Riddle, Allegan and Kalamazoo streets in the southwest section of River Island. The neighbor- hoods are in deteriorated condition and are poorly platted. 2) 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. -127- Circulation and Parking 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. - Providing 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 neighborhi)-ods. 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 Classifi- cation (Appendix XVII). In an effort to minimize the adverse environmental impacts (noise, debris) and improve safety in residential areas, non -local traffic should be discouraged by entry.restrictions and/or diversions causinq 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. -128- 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. 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. - Improving the present system of bike routes. - 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. -129- 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. - Expanding the mall concept to the 3 or 400 blocks of Washington south of Michigan. ' - Designing 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 f business uses within River Island by: o ' - 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. Provide parking adequate to serve the needs of business uses within the Central Business District by: ' - Designating parking areas for long term 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) -130- CIRCULATION ASSETS OF RIVER ISLAND 1) Major streets traffic into St. Joseph;an nd Hi hwa s that e Central area I-496 . capable of carrying large volumes of nawTM- ; L'ogan- and its extension; These major regional links serve to keep non -local traffic off of residen- tial 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 c—ampaign—s-a—FF 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 citywide master bike route plan. Circulation 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 ebetween the western city limits and the Central Business District, south of Saginaw Street (see map 32). -131- STRATEGIES (0-6 Years) 1) Define the boundaries of residential areas in which through traffic should be discouraged. This should be done by the Planning Department with assistance from the Traffic Department working with citizens in the affected areas. 2) Adopt and utilize the Function Street Classification Guidelines for imple- mentating traffic diverter and restriction improvements.(See Appendix VII) 3) Reduce traffic volumes and speed problems along residential streets by scourag ng 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. 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 Tocal residents. STRATEGIES (0-6 Years 1) Change the one-way residential streets to two-way traffic as noted on Map 33. PROBLEM 3 There is excessive truck traffic on various residential streets in connection with n ustr a activities. Pro lems 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 out - es specific routes outside of residential areas ortruck use. 2) Improve Willow -Logan Intersection to enable northbound trucks to turn east from Logan. -133- �00000000aoa000� .,� E STRATEGIES (6-12 years) .1) Extend -Melvin Street in the northwest part of the district east to provide access to t e industrial activities located at the end of Comfort Glen- rose Streets. Prohibit truck traffic from proceeding down these residential streets once this road is completed. Other route solutions should be in- vestigated. 2) Redesi n the Sa 1naw Staple intersection to allow safe two-way traffic for trucks. This wit a ow trucks to use Stanley both in and out of the Fisher Body Plant. PROBLEM 4 i- haan i'dantifipd dua traffic conflicts t0 7mornnar d Sinn s have large volumes of traffic i9naae or sinht distance or due to STRATEGIES (0-6 years). ' 1) .Install clearer signage or gtripina to desionatp r a nf WaF�, at t.hp following intersections (see map 34): A. Everett/Kalamazoo B. Everett/Hillsdale C. Capitol/Main ' D. Grand/St. Joseph 2) the following intersections to reduce danger and/or confusion ' (see map 34): A. Inverness/Ottawa/Verlinden B. Shiawassee/Osborn/Inverness/Jenison 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) ights or turnina l to improve turnip (see map 34); 9 movements at A. Kalamazoo/Logan B. Main/Logan C. William/Logan D. Olds/Logan E. Willow/Logan 1 -135 MAP 34 River Island Study Area [//-•/~•/•[• District Boundaries --Inn (fin NO LEFT TURNS DIFFICULT TU S ALLOWED 7COD J u o o CONFUSING SIGNAGE DESIGN PROBLEMS CONFUSING SIGNAGE o❑ CONFUSION OVER ROW DESIGN PROBLEMS 0❑❑ 3 [� ��❑ CONFUSION OVER ° ❑ ❑ ❑ RIGHT-OF-WAY U JEEDDODMIXmm JJJUW� POOR DESIGN SIGHT DISTANCE CONFUSION - PROBLEMS CAUSED M •' n r-1 PARKING BY ON TREET m R r--1 0 R ROW � F] POOR DESIGN DANGEROUS INTERSECTION �❑ ❑ �.� U CONFUSION OVER ROW x Q❑❑ via❑❑ ❑❑ ❑❑ o IDESIGN INADEQUATE ID ❑ ROBLEMS SIGNAGE a ❑❑ 1111 aD NEEDS CONFUSION o TURNING OVER ROW �❑ F LANES [] non D o CONFUSING C SIGNAGE ❑❑❑❑ DESIGN 1-tee ® PROBLEMS INADEQUATE SIGNAGE J ❑ ❑ � a -a-0 POOR DESIGN OF JQ ❑ 111111 ❑ LOW PROBLEMS ISLAND LARGEVOLUMES� CONFUSING OF CONFUSION OVER STRIPPING ROW OLO/MO/IL[ NEEDS SIGNS 111 1 UU" Ol ��❑❑ A N LANSING PLANNING DEPARTMENT -736- 4) Improve sight distances by eliminating on street parking around intersections or install traffic lights at. A. Shiawassee/Seymour B. Shiawassee/Grand PROBLEM 5 +•� uuu _ ►► -► cnc flO flUmDerc or motor vehicles. eC The situation is expected to worsen as industry and residential areas west of the city limits continue to grow. STRATEGIES (0-6 years) l) Undertake a feasibili n conjunction wit n PROBLEM 6 River near streets. of widening Willow St ng po tics ent t es. of Logan --N wcJ wl WIN 261MIL- e5pec1a11y walnut street and West Grand commercial area and also stretches of Chestnut and Comfort STRATEGIES (0-6 years) 1) Limit parking to one side of the street where traffic flow may be— andi, Capped due to .narrow right-of-way. Parking Problems PROBLEM 7 Residential areas with small lots and narrow c r etc lack adpqua p gav�kin g Inadequate parking is also associated with multiple and office developments or conversions occurring in structures previously used for single family use. -137- (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 Street (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 Street (multiple and office conversions, small lots) (f) The area bounded by Kalamazoo, River Street, I-496, and Grand Avenue (multiple and office conversions, small lots) STRATEGIES (0-6 years) 1) Investigate the 2) acquisition and clearance of su as a neighborhood parking area. in specified areas or permit s Providinq centralized residential. neighbor- . Vacant sites prOV—ided by selective )standard housing could be paved and used for residents ' PROBLEM 8 ' Non-resident commuters nark their Mehi 1 S 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 hiaher'utili7atinn nf A„ham t_anssUortation to reduce the need for parking in residential areas around the Central Business District. 2) Institut an experimental nein bnrhood,parkin9 s .i _k r prnaram for appropriate neighborhoods, especially the Bartlett, Carey. -and Westmoreland area and the South Genessee, Shiawassee an-d Forbes area. .,•'3) Provide the -personnel --necessary to nfor a xisting on street parking or lnances on affected Streets t4) Provide signs dirertini St- t awrpnrp viritars to rity_parkinglot on Westmoreland north of Saginaw. 5) Improve parkina lot at IS. - JQ&pph p and -*install signs to show where it is. ' STRATEGIES (7-12 years) 1) 'Consider construction of additional parkiajacilities. in close proximity to lansing Community college, a ans ng usiness Institute and the ton Center, so that students driving cars to class might be accomnodatedting- ' 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) Deveio clear and consistent si na a around public parking areas, primarily around the Central Business istrict. PROBLEM 10 mu n CUIU JUf-I CLI.0 area I ' u5 T r rKin in he downtown area. Almost ten percent 10� 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 provide 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 j2eriphery parking lots for Central Business, is-rict employees with a shuttle service to free up close in spaces for shoppers. 2) Promotp higher utilization of the puhlir transportatinn rzys p n r rar ' nnliig to reduce the need for providing parking spaces for private automobiles. -139- STRATEGIES (7-12 years) 1) -Consolidate parking facilij_ to reduce the amount of land in the central area devoted to parking. Consolidation would create more ramps and free up valuable downtown land for a more productive use. 2) Work with the State of Michigan and Oldl;mnhila to d v lop permanent t nar_kinm ramp ong 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 Wahtenaw. A similar shuttle could be arranged along Butler and Logan for Oldsmobile PROBLEM 11 U 1 UUU I I c sLreeLs _ a i i eywayt or_�jn,9��. Areas affected include the North Lansing Commercial Area, the West Saginaw Commercial Area, and the Central Business District in general, 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 o cur particularly during the peak hours of 7 to 9 a.m., 12 to 1 p.m. and 4 to 5 p.m. 2) Enfinrce law prohibiting hlo_aae of nuhLic 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 STRATEGIES (7-12 years) 1) Design andimplement lement ad uate loading and delivery facilities at various locations in the Central Business District .e., ommerce enter, the' Mall area, etc.) -140- Public Transportation PROBLEM 12 Inade uate 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 throughout the city. Evening and weekend service can be improved only if ridership is increased to pay for service. 2) The city should assist the local transit authority in the financing and construction of she ters to encou'r_ageincreased use during inclement weather. 3) Investigate funding s us shelters. PPnR1 FM I s for additional maintenance and land! ing of 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 (7-12 years) 1) Support the creation of Intermodal Transportation Terminal on Grand venue between Va-sntenaw 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. -141- Pedestrian Traffic PROBLEM 14 Pedestrian/motor traffic conflicts have been identified alnn9L-Saginaw Strop+ 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 due to the distance between marked crosswalks and large volumes of vehicular flow. STRATEGIES (0-6 years) ]•) Separate pedestrian/motor traffic flow along Saginaw Street through place- ment 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. PROBLEM 15 STRATEGIES (0-6 years) 1) Enforce pedestrian ri e—m'orre no`twn ac mace T " b 1 e . PROBLEM 16 STRATEGIES (0-6 years) laws. Particularly where streets cross the warning signs c oser to t e crosswa s an 1) Provide for SyStPmatir 7nVPnfnry and rpnlarampnt of CidPwa 1 icc i R7 ipr Island as outlined 1n the Public Service section of this plan). 2) Tnfnrm property owners of the responcihi>;ty to keep the pedestrian .riqt nf_ y. rlpax� Provide for clearance or trimming of plant materials when that responsibility rests with the city. The Parks Department should be responsible for maintenance. - -142- Bicycle Routes/Paths PROBLEM 17 iff—rr tire rew nesianaLeo functional bicycle routes within River Island Bike routes that are more direct to major activity centers are increasing in demand. STRATEGIES (0-6 years) 1) Imple[gent thgcitywide master bike route plan. 2) .Seaarate bike routes from motorists rig -nf-way n�„ n newly rnnctrurtAd nr reconstructed major thoroughfares. PROBLEM 18 to in without interference from automobi STRATEGIES (0-6 years) tt1e 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. nnnoi rRA l n There is no way for a hicgrle rider to take thp bus-' Interchange between these modes is difficult. STRATEGIES (0-6 years) Provide some buses with the capability of carrying bicycles. -143- PROBLEM 20 There is a lack of secu rP hicvcic orage and Qarkin farilit,cc g 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) Heauire bicycl storage_areas at all municival buildings4 community facili- ties, parks and municipally funded proert_.s_ 2) Amend the city codes to re;uire hiryr7e arkiny and Stnragp in all bjcinpcc office and commercial districts. PROBLEM 21 Bicvclists ignore traffic laws in respect to vehicular movement, turning and s i final i ng 1 aws . STRATEGIES (0-6 years) 1) Enforce traffic laws for bic clists and for a u S. a Po ice epartment wou oxide education in',dhools and e responsi a or s, -144- 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 VITALITY AND INTEGRITY OF RESIDENTIAL NEIGHBORHOODS SHALL BE SUPPORTED AND STRENGTHENED. THE DIVERSITY OF LAND USES AND ARCHITECTURAL FEATURES IN RIVER ISLAND SHALL BE PRESERVED AND MAINTAINED. 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. 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. General Proposals for Development These are the five policies for land use adopted by the River Island Policy Review Committee. 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 35 and 36. These proposals reflect policy established by the River Island Policy Com- mittee at the initial stages of this planning process. The pattern of develop- ment 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 majorichanges expected to occur. These will be discussed below. An attempt to stabilize and guide growth and development of 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 35) 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 diversity of uses is a positive aspect of living and/or working downtown. 1. Residential One major feature.of this new plan, however, is to delineate residen- tial 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 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. t- Screening and buffering should be used extensively to preserve residential .properties. -146- 1 Other major land use shifts are proposed for the following areas. - Develop the completed fly ash landfill area as parkland. Parkland development along the river front 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 flood plain. ' - Allow expansion of St. Lawrence Hospital. Representatives of that facility have expressed an interest to expand sometime within the next ten 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 Capital Complex in downtown; 4) new reinvestment and historic preser- vation for 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 blocks 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, addi- tional parking may be needed. 1 - Establish a strong pedestrian link between Burchard Park and Do4ge Park through the historic district. People using the riverfront park system should be brought thru the historic commercial district to provide the opportunity for people to see the historic district and patronize the businesses. 1 -147- ■■■■■■■■■■■■■.■■■■■■■■■■■■■■■....■■■■■■■■■■■■■ ■■■■■■■■■■■■■■■■■■■■■■■■■■■■■■■■■■■■■■■■■■■■■■■■ River Island Hrea .omorehansive Plc :1mole] :LO .N a I»_1 A 16 ' CIRCULATION (Map 36) 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 neigh- borhoods and 3) locate state employee parking adjacent to a major thorough- fare (Logan St.) ' 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 Walnut Street, north of Oakland Avenue. - Through traffic should be routed around the neighborhood west of Logan (Planning District #1), as much as possible, especially on east -west r streets (Michigan, Ottawa and Allegan are major considerations). - Interior traffic 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. - On other traffic direction change is proposed for Turner -Street in the Historic District between W. Grand River and Clinton Street to one way northbound. -148- x OWEN • � GRA _ `Np Rry` OWEN G ER E BASSETT CREE LAMONT CYP- RESS B O EEN O REDWOOD n f U � : g a CROSS ONTA RI O r KENNY Z � S N N ` m S O m m m ■ < T r y T yp�1 Q ti 9 Z -Z ❑❑ao o TNEOOORE � t u GLENN MAPLF (�� N a ❑ 0 ❑ ❑ NYLAN�--- D J■ y BRrO y g m m DALEFORO ❑ > a E y z i i o S = � r m 'a w i R y BLU O O NULL v 2 ? t ; L maoFO G = o_ OAKLAND O ♦♦.a ♦♦♦♦ •CHURCH ♦♦ ♦♦ R E .IOU o 0 ♦♦ 1 SACINAW ■ ............................•• ..■.....• • • ..• /••.•...••■.�.-.•■•.■•..• ■ ■ ■ N. GENE E O s -9'1 �. ■ ■ LAPEER ❑ DRE%EL D Oi,�d IfI-�^, I1II ■ •' OS RN � � �: GENESEE • .CENESE DD aoa�■ � SNIAWASSEE [ t � ■ 05ao a IONIA FORBES •�r� ♦F.y�o :•: LOCAL COLLECTOR MINOR ARTERIAL MAJOR ARTERIAL � TWO-WAY STREET � ONE-WAY STREET O LEFT TURN PERMITTED TRAFFIC SIGNAL with GREEN ARROW X DIRECTION SIGNS "NO THRU TRAFFIC " SIGNS TRAFFIC DIVERTER 0 BARRICADE or PROHIBIT WESTBOUND TRAFFIC {' SIGNS "DO NOT ENTER;' 3-6p.m. & 1-3 a.m. PLEAS ■ EITF 11] u: �00 aEloo1o[ao� River Island Area Comprehensive Plan PROPOSED CIRCULATION Implementation IIMPLEMENTATION ' The strategies outlined ' 9 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 nei h- borhoods. The results of that prioritization are included in the next chaXter." 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 o* 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 decision 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 develop- ment 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, administra- tive 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 govern- mental 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 S. Strategies that rely on action and involvement by individuals or groups in the private sector. -150- ' 1) Public Expenditure and Investment I 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 develop- ment 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* ' 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 foTTowing A. Tax concessions B. Loans and grants (federal, state, local) C. Improvements made to public facilities * Proposed -151- ' 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 Citywide growth and development for years to come. River Island Policies have been formulated in respect to these broad and general, directives. Adherence to these policies 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 governmen and the private sector. By requiring mandatory referral and planning review for every development proposal, coordination would be easier to maintain. trategies 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 -public entities such as the Economic Development Corporation (EDC) who are involved in program planning for economic development within the city and who are involved in the ' acquisition and disbursement of federal sources df revenue provided for such development. B. Citizen, private, or quasi -public 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 insti- tutions, where the private sector provides their expertise and processing machinery and the City'Guarantees loans, and/or write down interest for 1 housing or industrial improvement. The lending institutions should utilize more of their assets and ease the financial barriers to main- tain 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 parkina ' facility). F• Citizens Committee of the P1amniRg Districts -152- iorities 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 politi- cians 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 problem within that area as seen by the Committee is listed immediately after.. I. Housing 1) Absentee landlords allowing homes to deteriorate. II. Transportation 1) The circulation of through traffic in the neighborhood. III. Commercial/Industrial (Economic) 1) Lack of a full service grocery store nearby, and industrial concerns intruding on the neighborhood. IV. Community Facilities 1) The under utilization of schools. V. Environment and Land Use 1) Poor housing appearance and conditions throughout the district. VI. Public Service 1) Inadequate garbage pick-up in the district. -153- 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.) Housing 1. Systematic Code Compliance Programs 2. Housing Assistance Program 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 S. Washington Square and Environs Study 2. Park and Shop in Mall with attended parking and free parking in ramps for two huurs 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 Capital Complex 1. Update Capital Complex Master Plat, 2. Joint review of architectural plans for new buildings 3. Encourage cooperation - better relations on all projects between state and city TnAiie+riA1 1. Direct employee traffic to major streets and out of residential areas 2. Adopt truck ordinance 3. Berm Main Street Area -154- 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 River - front Plan ' Environmental Conditions 1. Develop program of landscaping patterns to enhance the visual appearance of a the entrances to the district 2. Adopt a strick 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 Shiawasee, Ionia, Washtenaw and Kalamazoo to two-way streets 3. Regular maintenance of alleys ' Parking - Short Range I. Centralized neighborhood parking lots in residential areas 2. Allow on -street parking 2 - 5 a.m. 3. Higher utilization of public transportation Long Range 1. Work to develop ramp at Logan, Allegan, Butler, Washtenaw for state and Olds use 2. Periphery lots around C.B.Dfor 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 ofS. grand 3. Increased CATA service on evenings and weekends Pedestrians I1. Enforce right-of-way laws for pedestrians in crossw alks ' Bicycles 1. Require public buildings and apartments to provide on -site bicycle parking and storage facilities 2. Provide bike path.along N. Washington Mall 3. Pro ide striping on streets to clearly indicate bike lanes -155- 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 outsiue telephone booths in public areas Police and fire 0 ' 1. Support programs of crime prevention 2. Consolidate stations #3 and'#7 3. Utilize old stations for first aide and C.P.R. training centers DISTRICT #3 CITIZEN PRIORITIES _ Citizens participating on the District 3 Committee were asked to list in order the 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 are 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. Encorage 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 W. 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 pro- tection. 3. Utilize state legislation that would allow the city to adopt a tax abatement plan that would encourage commercial redevelop- ment and investment. ' -156- 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) Environmental and Land Use 1. Amend Zoning Ordinance to require site plan review and approval. before building permits are issued for construction or,multiple or office uses in any zoning district and before conversion of a resi- dential structure over to that use takes place. 2. Rezone parcels in the North Lansing Commercial Area from the exist- ing light industrial district to commercial or residential districts. 3. Selectively acquire and remove blighted housing units and then re- design lot layouts to provide for more open space and distance between homes or apartments. Circulation and Parkin 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 Turck Route Map. 4. Clearly mark designated bike routes with signs and yellow lines painted along the curb. _157- Appendices HOUSING ASSI TANCED 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 applica- tion. 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 low and moderate families; Federal ousing Administration. The Federal Housing Administration in- sures mortgages and reduces interest payments for new and rehabilitated homes for low and moderate income families. Eligible families must have an adjusted income which does not exceed 95% of the areas median income. B. Section 221 d) 3 and 4) - Multi -family rental for low and moderate am ies;_Tedera ous ng 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; Fe era ousing Administration, Michigan Housing Development Authority, Direct loans to private, non-profit organizations to finance rental or ' cooperative housing facilities for elderly or handicapped housing. House- holds 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. ' Rehabilitation Assistance ' A. Community Devel2pLnLent Block Grants - City of Lansing, Housing and Redevelop- ment epartment. nancia ass stance to property owners in selected neigh- borhood strategy areas; assistance includes rebating a portion of the total ' rehabilitation costs, deferred loans and grants, combination loan and grants, financial counseling and refinancing. Property owners in Neighborhood Develop- ment Areas are required to make additional improvements to comply with re- habilitation standards above the housing code. B. Section 312 - Rehabilitation Loans - City of Lansing, Housing and Redevelop- ment epartment 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; e ects; Federal Housing dministrat on. 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. -158- ' 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 pro- viding guaranteed rental income which acts as a financial incentive to en- courage investment in the residential structure. An application for this program has been submitted. ' E. Title I - Home improvement loan insurance; Federal Housing Administration anTo—cal lending institutions. Insures loans to finance major rehabilita- tion and repairs on homes of up to $10,000, and apartments up to $25,000. ' Lenders determine eligibility and process loans. F. Housing Improvement Program and Neighborhood Improvement Program HIP/t!IP). ' Michigan State Housing Development ut ority. AlthFu—gh the program gu e- lines have not been completed, reduced interest loans and rants will be available to all Michigan property owners with incomes of 117,500 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 com- pleted. G. Emergency Repair Assistance - Ingham County Department of Social Sciences. rov es omeowners rece ving Aide to Dependent Children (ADC) and Social Security (SSI) with $500 allowance for home repairs such as plumbing, roof- ing, furnace and window repairs in an emergency. H. Winterization Program - Capital Area Community Services. Repair of broken windows, —patching oofs, walls, cracks and joints, install weather strip- ping and insulation, storm doors and windows of all owner occupied homes by SSI recipients and/or low income families (as defined by the federal proverty guidelines for the region). Purchase Assistance ' A. Section 203 (d) and (i) - One to four family home mortgage insurance. Local e ding 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. Any- one 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 areas median income. ' C. Experimental Financing - (Graduated payment mortgage) Federal housing dministration and local participating lending institutions. The Fede- ral Housing Administration insures a limited amount of mortgages on an experimental basis to allow homeowners to pay smaller monthly pay- ments initially and to increase their size gradually over time. Full payment plans are available, varying in duration and rate of increase. -159- 1 ' PROPOSED ORDINANCES (1) 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 availa- ble to prospective buyers. In addition, for owner occupants, that are health or safety related would have to be repaired priorsviolations 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. ' (2) Neighborhood Conservation District Ordinance The city should adopt a Neighborhood Conservation District Ordiance to allow ' for formal designation of neighborhoods where architectural designs are con- sidered 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 th e 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 or- dinance through control over issuance of building permits. ' (3) Vacant Structures Ordin ance ' 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 -160- ' 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 pro- ceed with condemnation proceedings to remove the hazard. (4) 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 ' (1) 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. ' (2) State Enabling -Legislation Recommend changes in State Enabling Legislation that would allow local politi- cal 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. (3) Service Areas Amend the zoning code to require a screened and/or fenced service area for multi- ple dwelling units located in an accessible location without reducing the number of parking spaces. (4) Mixed Use Amend zoning ordinance to allow a mixed use zoning category. This is to promote more efficient usage of land and to facilitate structures which ac- commodate both residential and office uses. (5) Site Plan Review Amend zoning ordinance to require site plan review by the Zoning Department for development of housing associated with zoning changes and require such review by the Zoning 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. -161- I 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 altera- tions should be approved only if the developer has complied with the formal design standards established for the district. ' PROPOSED PROGRAMS 1 (1) 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 'f assistance to home owners 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. (Financialan of er assistance programs related to housing are nc u e in this Appendix.) (2) Neighborhood Maintenance Organizations Such organizations should be formed in neighborhoods where increased mainte- nance of structures is the goal. Housing here is generally sound and efforts are geared toward improving the appearance of a neighborhood. Neighbor- hood 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 Neigh- borhood Housing Services (NHS) Program, would be effective in establishing this strategy or some NHS "type" program could be developed with similar par- ticipation 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 by neighborhood resi- -162- dents 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 pro- gram development. Private financing institutions underwrite the operating budget, serve on the NHS Board of Directors and commit to making conven- tional loans in the neighborhoods. (3) Housing Services and Assistance Program Responsibility for providing the public with a variety of information related to nousing ,pgograI . f nancial'zass i.stante; technical,., assistance; "'d6si:gh`.possibil i- ties:;.:s cp�d:be assume*,by,,,anagency:that vaould.w6, rk= -jowly with city depart- e x+�s, ,3nvclvet ,r; d ira,est r g a of sipg- programs',,'; Such .an -agency could be pub- 1 ica 'quasi pl,c,.o prit;;::h„Housing: Ser'vicos `nd;Assistance Agency would d1stribute, pamphlets throughout neighborhoods where +improvements may be needed. Availabae information should include but not be limited to the following: A. Financial as-sistahce prograrns...; B. , Tay., programs (foderal,,a,sta,te., local) that'.provide. incentive for rehab ' work.. •, C. Design suggestions and alternatives. D. Mortgage or, financling. a3ternatives. In addition,the agency -could. supply .the -fo1l,owi.ng .services: A. Technical advice for home improvements. B.. Opera.tion of a-; tool banks for. use..,by citizens- dcstring, to mki their .. own Amprovements,: kt -mot} ... . . - •i. - .. ". . wl, . " -1 �3- APPENDIX II ECONOMIC PROPOSALS Proposed Programs/Development Plans North Lansing Recent investment of public dollars for curb, gutter, street, and parkland development in the historically significant North l ansinn r„mmaN,.;nl n srcu l d be .,supported by, active ' efa c, .. forts ' and `pl atrmed pr 69'rams .designed :to re 0'ta7ize. the' -area for,coppercial use:' The 'Cityp' Chamber of Commerce, E.D.C., and business owners of lo-FE Lansi!ig should combine their resources and energy to--. b, ;rig.; abort tha ; revitalization.'' evi tal i zat i ors . Pa,ogram strategies should provide for the ' fo I I owi ng, li. Des i gna'ti on of the Nor°ths Lansing Commercial Area as an Historic District tinder the provisions of a local historic ordinance. B. Development. of the'ar'ea ' accordi�n -to a theme concept in keepinn 4vith it;;� historic heritaues unique, urban design, parkland level cpnient and p l art for metropol i tan fishing development. C. Promotional caRipYaigns including advertising, festivals, fishing derbies, and other special events. ' D. Rezoning of parcels from the "H" Light Industrial Designation to the "F" Cnnrnprrial ra$Qnny-ti Vacant structures and marry i nal corrtmerci al activities must he dealt with if North '"arising is to become successful once again. Program development to accomplish that goal will rely on the concept of suppor-ting the public ' investment beina made with additional private investment. A firms commit- ment 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 E.D.C. to provide lore interest loans for commercial building rehabilitation and use. B. Designation of ;Borth Lansi nq as a special district under ' Act 252 to alloys adoption of a tax abatement plan that will encourage commercial redevelopment and inve'stmente C. lmproveireht of publicly owned facilities (streets, gutters, etc.) financed through the Capital Development Pr•ogr~am, 'I St 1inaai ,Cor ierdal Area the 0-6posed West Sag i naw C.omnipfti a l Area Plan would provide for the inprove- n.ent of par#<ing facilities and vehiclriae cirtulattbh to better serge the needs of shoppers and patrons; Public impr;overients will include th followihd -1C4= A. Parking lot expansion B. Resurfacing of lot C. Improved Lighting D. Landscaping and Buffering E. Sidewalk reconstruction F. Tree plantings along Saginaw St. It is recommended that the implementation of this plan he 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 businessman to promote and discuss the possibility of bringing about redevelopment or renovation of their buildings. The task force would serve as a clearing house 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 I-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, M.S.U., 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 should include a museum, restaurant, park, and 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 prove ing 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. -165- ' 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 emplyoees 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. ' 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 patronage, ' using a cooperative agreement, between various cocerns. That is, if someone goes to a play downtown, they may receive 10% off on their next purchase at a downtown store. This ystem would also work in reverse. ' This system would promote continued patronage of the activities and stores in the downtown. -166- APPENDIX III COMMUNITY FACILITIES PROPOSALS ADMINISTRATIVE (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, construc- tion 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 administra- tion 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. NEW ORDINANCES None proposed LEGISLATIVE CHANGES/AMENDMENTS ' None Proposed -167- 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 Recrea- tion 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 physical needed 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 mainten- ance 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. Speci- fically a small fee should be charged visitors to the Potter Park Zoo to help offset the large maintenance costs associated with that ' facility. I D. Use CETA workers to increase the work force charged with park mainten- ance and particular CETA programs geared toward providing summer jobs for young people. ' (2) Park Utilization Study The city policy makers should utilize the information that will be gathered as part of the parks utilization study to develop strategies and schedules con- cerning 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. Recommen- dations 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. -168- APPENDIX IV PUBLIC SERVICE PROPOSALS ADMINISTRATIVE (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 Li htin --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 (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 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. PROGRAMS (1) Crime Prevention --Concentrated crime reduction programs will be most sec ive w ere 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 May 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." -169- (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 Re lacement--Improvements to curb, gutter and streets are present y financed through use of general local revenues in combination with state funds allocated under Act 51. Programs should be initiated that will formallyidentif stretches of road in need of repair or rep acement. 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. -170- APPENDIX V ENVIRONMENTAL AND LAND USE PROPOSALS PROPOSED ADMINISTRATIVE ACTIONS/CHANGES (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 residen- tial users will enable some agreement to be reached that would be effective in treating the problems. 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 wouldprovide 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 a Title 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. -171- PROPOSED NEW ORDINANCES (1) Neighborhood Conservation District Ordinance (see Housing Proposals section in Appendix (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 restorehistorically 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 citizen's 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. -172- 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. PROPOSED LEGISLATIVE CHANGES/AMENDMENTS (1) Site Plan Review (see Housing Proposals section in Appendix I) (2) Performance Standards It is recommended that investigation be made in to 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 operatons. 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/DEVELOPMENT PLANS (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 technical 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 com- mercial buildings according to prescribed design recommendations or standards. The task force would serve as a clearing house 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. -173- (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 over crowded 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. -174- APPENDIX VI CIRCULATION AND PARKING PROPOSALS ADMINISTRATIVE CHANGES/ACTIONS Traffic Control The Traffic Department will work in conjunction with citizen groups and ' City Council to develop individual circulation plans for specific neighbor- hoods. These plans would: (1) discourage the use of residential streets 1 by through (commuter type) traffic; (2) identify and correct poorly designed or dangerous intersections; and (3) reduce traffic speed within neighborhoods. The object 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 A new single system for functional classification of City Streets should be adopted. The classification system included in Appendix VII 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, signal- ization and similar traffic improvements. PROPOSED NEW 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 -trailer and large hauling trucks which create noise and odor nuisance in residential areas. -175- ' 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. - 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 PROGRAMS Increased Bus Use Promote increased bus use through application of the following recommendations: ' A. Institute promotional and advertising campaigns stressing the positive points of mass transit. ' B. Provide schedule information at bus stops. C. Help finance, construct and maintain bus shelters to encourage ridership during inclement weather. ' D. Provide bicycle racks at high utilization bus stops to promote the interchange between these modes. ' Once Bus use is increased new routes may be instituted and hours may be expanded. -176- 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 land- scaping of that lot. B. Institute a sticker system for residents of designated neigh- borhoods. 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 Croups 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 term of these permits should be in excess of three months. C. Allow alternate side parking from 2 a.m. - 5 a.m. for residents in specified areas. -177- 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 classi- fications and the relationship between each type of street and the amenities which should be provided. In several instances which have occurred in recent years, problems have arisen in attempting to reconcile the various street classification standards in order to obtain 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 lest system is the one employed by Federal Highway Administration for Urban Systems funding. Each of these systems employes either different terminology or different definitions for the same terminology. All of the systems use different criteria upon which to base their classofications. 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 sys- tems, 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 for'the 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 Imple- mented 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. ' Therefore, the tabular form of the guidelines would be the primary instru- ment in the City's Master Street Plan. -178- The system proposed here is based primarily on the Highway Functional Classification Concepts, Criteria, and Procedures, U.S. Depar men o Transportation, Federal Highway m n strat on, July, 1974. This docu- ment outlines the conceptual base for functional classifications 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 a street as a particular type also serve as the guidelines for future 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. -179- 03 0 I FUNCTION/TYPE LOCAL Primarily serves abutting land uses, least amount of traffic, longest travel time, through traffic discouraged. State Cl—assification Public Transit Volumes Speed Limits Width of Pavement Number of Moving Lanes ,; FUNCTIONAL STREET CLASSIFICATIONS TABLE GENERAL GUIDELINES COLLECTOR MINOR ARTERIAL PRINCIPAL ARTERIAL Serves to collect and disburse Services as a connector between Primarily serves through traffic, traffic to and from local and principal arterials. Moderate carries major amount of through arterial streets. Equal empha- travel times and volumes, often form traffic, shortest travel time, 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. Expressways - serves interurban traffic. Primarily controlled n access. a cn ----------------------------------------------------------------------------------------------------------------------------------------- — a x Residential Local Access Principal Collector Local Arteries Metro Regional Arterials n ustria T7 commercia I Secondary Collector Area Arterials State -Wide —Arterials local access Bus routes discouraged. Pedestrian paths provided separately. Less than 1,500 ADT 25 m.p.h. 26-36 feet Two moving lanes; one in either direction SUGGESTED DESIGN CRITERIA Dial a ride or short bus routes Intraurban routes encouraged. allowed. Integrated bike paths. Separated bike paths and pedestrian Pedestrian paths separated paths. 1,000 - 10,000 ADT 8,000 - 20,000 ADT 25-35 m.p.h. 25-45 m.p.h. 30-40 feet 36-48 feet Inter and intraurban bus routes encouraged. Separated bike paths and pedestrain paths. Greater than 15,000 ADT 30-55 m.p.h. Greater than 40 feet Two -three moving lanes; two . Two-four moving lanes; two directional Three or more moving lanes --two directional or one way or ore way directional or one way Functional Street Classification, General Guidelines Page 2 FUNCTION/TYPE LOCAL COLLECTOR MINOR ARTERIAL PRINCIPAL ARTERIAL Parking Existing Generally allowed on Parking allowed on one side if Prohibited except where required by Prohibited except where requi Streets both sides unless a the pavement width is 28-35 feet abutting land use. by abutting use and where it hazardous traffic Parking allowed on both sides if situation has been the pavement width is 36 feet or identified. wider, New Same Parking allowed on one side if Prohibited 'Streets the pavement width is 32-39 feet. Parking allowed on both sides t if the pavement width is 40 Qp feet or wider. t Lighting Low profile --on tele- Low profile --on telephone pole Low or high profile (type of phone pole or individual or individual stanchion for fixture optional) stanchion (type of fixture residential streets (type of optional) . fixture optional). High profile for commercial collectors. 4 would not encroach on moving lanes. Prohibited High profile (type of fixture optional) r M S STREET SYSTEMS TERMINOLOGY INTERCHANGE TCRPC LANSING REGIONAL URBAN MASTER STREET PLAN "ACT 51" FUNCTIONAL SYSTEMS PLAN LOCAL c MINOR ^' ARTERIA MAJOR ARTERIA FREEWAY LOCAL LOCAL URBAN RESIDENTIAL ROAD ' a COLLECTOR. SECONDARY SECONDARY ROAD THOROUGHFARES MAJOR MINOR PRIMARY ARTERIAL ROAD PRIMARY THOROUGHFARES PRINCIPA UNKLINE ARTERIAL/ FREEWAY [NTERSTATE PRIMARY INTERSTATE LIMITED ACCESS THOROUGHFARES