cda staff report - wisconsin

CDA Meeting

January 8, 2018

CDA STAFF REPORT MEMO DATE: December 29, 2017 MEETING DATE: JANUARY 8, 2018 TO: Village of Cottage Grove Community Development Authority CC: Matt Giese – Village Administrator Lee Boushea – Village Attorney FROM: Erin Ruth, AICP – Village Planning Director RE: Potential TIF district on Highway BB OVERVIEW In 2016 the CDA reviewed the concept of creating a TIF district on W. Cottage Grove Road including potential layouts for the north side of W. Cottage Grove Road between Cork Crossing and Sandpiper Trail (see attached staff report dated July 6, 2016). Recently the Village Board denied a conditional use permit application for a Casey’s General Store gas station at the NW corner of Sandpiper Trail and W. Cottage Grove Road. The proposal was turned down largely because it was deemed not to be an ideal representation of desired development in the corridor, because the Comp Plan expresses a preference for high quality buildings closer to the street. In the course of the discussion surrounding the Casey’s denial, Board members again raised the idea of creating a TIF district in the W. Cottage Grove Road corridor as a means of allowing the Village to more directly influence the type of development that occurs in the corridor. Questions for initial discussion by the CDA include:

1. Is TIF appropriate for the corridor? 2. Is TIF necessary to implement the type of development desired by the Village? 3. If TIF is desired, what is the appropriate scale (small focused intervention, or broad

flexible district)? To illustrate the third question, there are two plans attached showing a minimum and maximum extent for a potential TIF. The ‘minimum’ plan does not necessarily represent the smallest possible district, but rather an example of a smaller district. Likewise the ‘maximum’ plan is not the largest possible district, but rather shows an example of a larger corridor-wide district. Either could, and likely would, be altered in the course of further study.

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Village of Cottage Grove CDA -2- January 8, 2018

The ‘minimum’ example is intended as a focused intervention that could be developed as one project. It is focused on the Metcalfe property where Casey’s had been proposed, along with the parcels across Cork Crossing and Sandpiper from that property. The ‘maximum’ example includes much of the Cottage Grove Road corridor including an overlay of portions of the existing TID#6. This scale would provide a greater degree of flexibility for the Village to assist on potential projects all along the corridor including redevelopment opportunities. For additional background on the use of TIF, see the attached ‘Efficient and Strategic TIF Use’ prepared by the Center on Wisconsin Strategy.

CDA STAFF REPORT MEMO DATE: July 6, 2016 MEETING DATE: JULY 11, 2016 TO: Village of Cottage Grove Community Development Authority CC: Matt Giese – Village Administrator Lee Boushea – Village Attorney FROM: Erin Ruth, AICP – Village Planning Director RE: Potential W. Cottage Grove Road Tax Increment District OVERVIEW At the June CDA meeting, an analysis of the Village’s current TIF districts by Ehlers revealed that there is capacity to add an additional district (or districts) within the limits set by State Statute. TID creation is regulated by Wis. Stat. 66.1105. Two important regulations include the following: “Equalized value of taxable property of the district plus the value increment of all

existing districts does not exceed 12% of the total equalized value of the taxable property within the city.”

“Not less than 50%, by area, of the real property within the district is at least one of the following: a blighted area...; suitable for industrial sites; or suitable for mixed use development.”

At previous meetings, the CDA has discussed two likely areas for new TIF districts: 1) the area north of I-94, and 2) a portion of the W. Cottage Grove Road commercial district. At this meeting, the CDA is asked to focus on the potential W. Cottage Grove Road district. It had been suggested that this district could be a site for denser, ‘downtown’ style commercial development. Prior to working on the creation of the district, staff would like to determine if ‘downtown’ type development is physically feasible at this location given the site constraints present. In preparation, staff has prepared the following: A suggested W. Cottage Grove Road TID boundary, with a tally of assessed property

values within the proposed boundary Four concepts for creation of a ‘downtown’ development node within the proposed

district

CDA Meeting July 11, 2016

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Figure 1: Proposed TID Boundary, W. Cottage Grove Road

As seen in Figure 1, the proposed TID boundary includes 13 parcels with a cumulative value of $2,520,800, which fits within the 12% statutory limit. Twelve parcels are currently zoned for commercial use, while the remaining parcel is an outlot used for stormwater management purposes. TYPES OF DOWNTOWN DEVELOPMENT Generally speaking, traditional ‘downtown’ development follows two different types, linear (streets or corridors), or nodes (squares or plazas). Regardless of type, certain other characteristics define ‘downtown’ development: mix of uses, activity during day and evening hours, space for social activity, a sense of enclosure, adequate parking including street parking, walkability, and higher density than the surrounding neighborhood. Furthermore, successful areas also offer a perception of safety (from crime, traffic, etc.), and physical comfort (protection from wind, glare, cold, etc.). At first glance, it might appear that a ‘downtown’ corridor along W. Cottage Grove Road should focus on the W. Cottage Grove corridor itself. However, the W. Cottage Grove Road ROW is 120’ wide at this location, and it contains 4 lanes of traffic.

Village of Cottage Grove CDA -2- July 11, 2016

Figure 2 below (from The Lexicon of New Urbanism by the Duany Plater-Zyberk urban design firm) illustrates building height to street width ratios. It is generally accepted by New Urbanist designers that a 1:1 ratio is ideal for a commercial street, with a 1:2 ratio (for example, 30’ buildings which enclose a 60’ wide street) as a minimum. A 1:3 ratio is deemed ideal for a plaza, and 1:6 is the limit at which a sense of enclosure is perceived.

Figure 2: Height/Width Ratios from 'The Lexicon of New Urbanism' by Duany Plater-Zyberk


Given the 120 foot width of the W. Cottage Grove Road ROW, a 20’ building height at the front property line would provide the 1:6 ratio that is the limit of perceptible enclosure, while a 60’ building height would provide the ‘minimum’ street enclosure (1:2 ratio). The 60’ height is not realistic in the current Cottage Grove market. The lack of adequate enclosure would appear to work against the success of W. Cottage Grove as a ‘downtown’ corridor. The perceived sense of enclosure can be modified when street trees are used. Street trees in the W. Cottage Grove median might provide the needed enclosure. No trees are currently located in the median, and it would take many years for the trees to reach adequate height. The Village also receives occasional complaints about perceived safety concerns about crossing W. Cottage Grove Road. While the street can be crossed with acceptable safety at the crosswalk of controlled intersections (such as Southing Grange/Oak), the perceptions about traffic levels and speeds would work against the success of W. Cottage Grove Road as a ‘downtown’ commercial corridor. An alternative would be to continue the use of W. Cottage Grove Road as a throughway with short one block stretches of ‘downtown’ street front running perpendicular to BB on Cork Crossing and Sandpiper Trail (see Figure 3 – Concept A). Angled parking could be provided on-street with additional parking in the interior of the block. Higher quality façade materials and streetscaping should be provided on Cork Crossing and Sandpiper Trail.

Figure 3 – Concept A


Another common solution to this problem is the creation of a public plaza which opens on one end to the busier through street. This configuration allows visibility and access from the main throughway while also creating an environment that is perceived as safer and more enclosed. Market Square in Lake Forest, IL is an early example of this configuration (see Figures 4 to 6) that is well-known to the point that the configuration is sometimes called the ‘Lake Forest model.’

Figure 4: Site Diagram of Market Square in Lake Forest, IL


Figure 5: View of Market Square in Lake Forest, IL, looking west

Figure 6: Market Square site plan


Figure 7 – Concept B shows a variation of the Lake Forest model applied to the W. Cottage Grove corridor. The public plaza is inserted into the center of the block north of Cottage Grove Road, between Cork Crossing and Sandpiper Trail. As shown, there is an access point on the south with vehicle circulation permitted around the plaza. Street parking could be provided on this route, similar to Lake Forest. Additional parking is provided on the northeast and northwest corners of the block. In this concept, Cork Crossing and Sandpiper Trail function primarily as vehicle access routes with the pedestrian focus on the plaza itself. Cork Crossing and Sandpiper Trail could maintain the angled street parking shown in Concept A. In this concept, higher quality façade materials and streetscaping should be provided facing the plaza.

Figure 7: Concept B


Figure 8 – Concept C is similar to Concept B in that is a version of the Lake Forest model. In this concept, the ‘L’ shaped buildings adjacent to the plaza are reversed. This configuration has the effect of breaking the plaza up into three sub-spaces, and the enclosure of the plaza is less defined. However, this configuration also allows greater visibility into the plaza from W. Cottage Grove Road and provides an opportunity for more definition and a greater sense of enclosure on Cork Crossing and Sandpiper Trail. The arrangement of parking and vehicle circulation are identical to Concept B.

Figure 8: Concept C


Figure 9 – Concept D is essentially an attempt to combine the corridor approach found in Concept A with the Lake Forest model from Concepts B and C. In this concept the plaza is shifted west to the corner of W. Cottage Grove Road and Cork Crossing. This allows the building west of Cork Crossing to become part of the plaza enclosure, however it does so from a distance and provides a lesser degree of enclosure. The buildings east of Cork Crossing have direct access to the public space, but lack the parking directly in front that is provided in the other concepts. Visibility into the plaza is maximized, especially if the Cork/BB intersection is controlled. Sandpiper Trail can be built as a double loaded ‘downtown’ corridor along the length of the block. Parking can be provided on-street along Cork Crossing and Sandpiper Trail, with additional parking in the interior of the block. The concept could also be mirrored with the plaza on the corner of Sandpiper and BB.

Figure 9: Concept D


STAFF RECOMMENDATION Staff encourages the CDA members to discuss the concepts presented. The purpose is not to select a favorite option, but to determine whether any of the options (or some potential variation on an option) have the attributes necessary to provide the ‘downtown’ quality sought by the CDA for this area. If the answer is yes, then subsequent steps should be taken toward determining the feasibility of the district. If not, the CDA will need to determine whether a TIF district at this location is the best use of the limited TID capacity available.


cda staff report - wisconsin

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