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Transit OrientedDevelopment Plan
For the ARCH-LACLEDES and STADIUMMETROLINK STATIONS
prepared by H3 Studio
for the City of Saint Louis & the Saint Louis Development CorporationDraft Final Report
J uly 2013
DT
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Acknowledgements
CLIENT GROUPThe City of Saint Louis
Honorable Francis G. Slay Mayor
Catherine Werner Director of Sustainability
Don Roe Director of Planning, Planning &
Urban Design Agency
Saint Louis Development Corporation
Otis Williams Executive Director
Amy Lampe Major Project Specialist
TECHNICAL ADVISORY COMMITTEEJ eff Babinski Vice President & General
Manager, Lumire PlaceCasino & Hotels(Pinnacle Entertainment, Inc.)
Kim Cella Executive Director, CMTJ ohn Clark President, Lacledes Landing
Community Improvement Districtand Lacledes LandingRedevelopment Corporation
Leonora Fisher Grants / Program Manager, CMTMaggie Hales Executive Director,
CityArchRiver 2015Garrick Hamilton The Koman GroupAmos Harris Spinnaker Real Estate PartnersCraig Heller Owner, LoftworksPaul Hubbman Senior Manager of Corridor and
Long Range Planning,
East-West Gateway Council ofGovernments
Emily Kochan Executive Director, Lacledes Land-ing Merchants Association
J ohn Langa Vice President ofEconomic Development, Metro
Mary Grace Lewandowski Transportation Planner, East-WestGateway Council of Governments
J ohn Kohler Planning & Program ManagerBoard of Public Service,City of Saint Louis
Vince Miller Drury Development CorporationStan Mulvihil Vice President,
McCormack Baron SalazarRob Orr Major Project Manager,
Major Projects Department,St. Louis Development Corp.
J ayson Pollard General Manager,Hilton at the Ballpark
Andrew Riganti Commercial District Manager,St. Louis Development Corp.
David Sandel President,Sandel & Associates
Matt Schindler Senior Manager of CommunityDevelopment, Partnership forDowntown Saint Louis
Wendy Timm Executive Vice PresidentEnhanced Value Strategies
Deanna Venker St. Louis Area Manager,Missouri Departmentof Transportation
Ron Watermon Director of Public Relations andCivic Affairs, St. Louis Cardinals
Phyllis Young Alderwoman, 7th WardCity of St. Louis
PLANNING TEAMH3 StudioLead Consultant
J ohn Hoal, Ph.D., AICP Principal-In-Charge
Timothy Breihan, A.AIA Major Project Manager
Laura L. Lyon, VP, CNU Project Manager
Bryan Taylor Robinson, AICP Sustainability Planner
Project Manager
Courtney Cushard, LEED AP Urban Designer
Angie Hristova Urban Researcher
J onathan Stitelman Urban Designer
Christopher Liao Technical Staff
Reed Miller Technical Staff
Andrew Luy Technical Staff
Bernardin, Lochmueller & Assoc iatesTransportation Sub-Consultant
Douglas Shatto, PE, PTOE Transportation Services
Manager
Christopher Beard, PE, PTOE Project Engineer
Christopher J oannes Traffic Planner
Ryan Bumb Traffic Engineering
Specialist
Robert Innis Principal,
Innis Consulting
Development StrategiesEconomic Sub-Consultant
Robert M. Lewis, AICP, CEcD Principal
Larry Marks Principal | Executive
Vice President
Katie Medlin Senior Analyst
M3 Engineering GroupCivil Engineering & Environmental PlanningSub-Consultant
Marjorie L. Melton, P.E., LEED AP Principal
Marc W. Eshelman, P.E. Principal
Vector Communications CorporationPublic Outreach Sub-Consultant
Laurna Godwin Partner
Rachel Powers Consultant
The work that provided the basis of this publication was supported by funding underan award with the U.S. Department of Housing and Urban Development through East-West Gateway Council of Governments. The substance and findings of the work arededicated to the public. The author and publisher are solely responsible for the accu-racy of the statements and interpretations contained in this publication. Such interpreta-tions do not necessarily reflect the views of the Government or the East-West GatewayCouncil of Governments.
ationanager, CMT
or,,er 201520
man Groupn Grounnaker Real Estate Partnersal E art
Owner, oftworksrksenior Manager of Corridor andr of rridorong Range Planning,annin
East-West Gateway Council ofway cil ofovernments
ann xecutive Director, Lacledesr, Lng Merchants Associationng socia
n Langa ice President oficEconomic DeveloEco o
Grace Lewan ows iwan ransportatioraateway
er PlanPB
PP
anagera e
an es gnen
Ur an Researc ern R
Ur an DesigneDe
ec nca aca
ec nca aa
Tec nica Staa St
ardin, Lochmueller & AssociateshmTransportation Sub-Consultantub- o
Douglas Shatto, PE, PTOE, PT
C ristop er Bear , PE, PTC r E, PT
rs op er oannesrs s
yan Bumban
Ro ere
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Executive Summary 5
Introduction 23
Project Background & Context 31
Station Area Plan 53
Implementation 109
Appendix 177
The Following Project Files Are Located at the City of Saint Louis Planning and Urban Design Agency:
Transit Oriented Development Plan for the Arch-Lacledes and Stadium MetroLink Stations
Transit Oriented Development Plan Appendix
The Following Project Files Are Located at the East-West Gateway Council of Governments Website:
Electronic files of this Plan and corresponding Appendix are available on the website of the East-West Gateway
Council of Governments in adherence to the criteria for funding under an award with the U.S. Department of Housing
and Urban Development through East-West Gateway Council of Governments.
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DTExecutive SummarymIntroductiono
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0 | Executive Summary
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PROPOSED VIEW OFLACLEDES LANDING
PLAN OBJECTIVE
The Arch-Lacledes and Stadium MetroLink stations are two of the most
important entertainment and cultural tourism stations in the entire MetroLink
system. Both stations are located within and provide service to Downtown
Saint Louis, as well as to regional destinations such as Busch Stadium and
the Jefferson National Expansion Memorial & Gateway Arch. By targeting
specific opportunities and linking existing assets to a community-based vision
for Downtown development, the City of Saint Louis and its partners possess
a significant opportunity to establish the Arch-Lacledes and Stadium Station
Areas as significant new living and working districts in Downtown Saint Louis.
The Transit Oriented Development (TOD) Plan for the Arch-Lacledes and
Stadium MetroLink Stations (the Plan) establishes an actionable station area
plan for new development supported by access to transit. The Plan outlines
market-based development programs supported by proforma analysis for the
recommended station area development. The Plan includes recommended
improvements to existing streets, parks, and infrastructure that maximize
access to the stations and achieve environmental best management practices.
The Plan describes the estimated costs of these public infrastructure improve-
ments and outlines available mechanisms to provide incentives and aid in
implementation funding. Finally, the Plan proposes regulatory tools for the City
to pursue in the implementation process. In total, the Plan sets forth a market-
based, community-supported vision for transit oriented development around
the Arch-Lacledes and Stadium MetroLink stations, and a roadmap for the
City of Saint Louis to make this vision reality.
PLAN DEVELOPMENT & FUNDING
This Plan is funded with a portion of the $4.7 million Sustainable Commu-
nities Regional Planning Grant from the joint U.S. Department of Housing
and Urban Development (HUD)U.S. Department of Transportation (DOT)
U.S. Environmental Protection Agency (EPA) Partnership for Sustainable
Communities. This grant was awarded to and administered by the East-West
Gateway Council of Governments as part of OneSTL (formerly the Regional
Plan for Sustainable Development). This Plan builds upon the existing Saint
Louis TOD Framework Plan, which was completed by Design Workshop for
the entire MetroLink system. As a Consortium Partner for OneSTL, the City
of Saint Louis is submitting both this P lan and the TOD Framework Plan to
East-West Gateway as part of the OneSTL Plan.
Strengthening existing neighborhoods and connecting residents to transit is
a major component of sustainable neighborhood development and a stated
requirement of this Plan. The project Study Area incorporates the 10-minute
Te Plan sets orthamarket-based,community-supported vision
or transit orienteddevelopmentaroundthe Arch-Lacledes and
Stadium MetroLinkstations, and a roadmapor the City o SaintLouis to make thisvision reality.
see
artners po
s an Sta ium Stata St
cts in Downtown Saint Louis.own
(TOD) Plan for the Arch-Lacledes andl -Lac
e P an esta is es an actiona e stationP an e st
nt supporte y access to transt. T e P ae e P a
eopment programs supporte y proormas su
e staton area eveopment. T e P an nstat me
vements to existing streets, par s, an it ex ar s
access to t e stations an ac ieve environt ns a iron
T e P an escr es t e estmate cosr e e
ments an out nes ava a et a a
impementation un ing.i n .
to pursue n t e me
ase , coma
t e Are Arsets orthsarket-based,k d,
mmunity-norted visionte o
nsitsi
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walk shed (half-mile) for the Arch-Lacledes and Stadium stations. This Study
Area is home to approximately 14,000 residents and has seen over $5 billion
in both public and private investment since the early 1990s. These areas offer
a significant opportunity for new development, which will enhance connec-
tivity, mobility, and access to transit.
PARTNERS & ADMINISTRATION
The planning process is administered by the Saint Louis Development Corpo-
ration (SLDC). SLDC, in partnership with the City of Saint Louis Planning
and Urban Design Agency, forms the Client Group (Client) for the Plan. The
Project Team lead is H3 Studio, performing project direction, transit oriented
development planning, and project management. Project Team partner
Development Strategies performs economic development program analysis
and funding plan development. Bernardin, Lochmueller & Associates (BLA)
performs transportation, parking, connectivity planning, and ridership projec-
tions. Innis Consulting assists BLA with transit policy and operations recom-
mendations. M3 Engineering Group (M3) develops the civil and environmental
engineering recommendations and cost estimates. Finally, Vector Communi-
cations leads public outreach and communication efforts.
The Saint Louis Development Corporation (SLDC) is responsible for the
project administration. Amy Lampe, Major P roject Manager, is in charge as
project coordinator. The Client Group team consists of Amy Lampe, Catherine
Werner (City of Saint Louis Director of Sustainability), and Don Roe (City of
Saint Louis Planning and Urban Design Agency Director. The project team
held four (4) coordination and review meetings with the Client Group team
throughout the course of the planning process for regular guidance and review
of materials and work products.
PLANNING PROCESS
This planning process took place over the course of six months and involved
regular interface between the Client Group and the Project Team. In addition,
the Project Team met with an assembled Technical Advisory Committee (TAC)
and conducted extensive public and stakeholder outreach. These efforts
allowed the Project Team to collect a large amount of data and feedback from
a wide cross-section of neighborhood residents, institutional and govern-
mental staff, and community members. The public and stakeholder outreach
initiatives have helped to enrich the recommendations of the study and have
helped to build a broad base of consensus and support for the project.
Fner
anays s
sociates BLAiate
, an ri ers ip projec-r ip
cy an operatons recom-t s re
veops t e civi an environmentan men
ost estimates. Fina y, Vector Communi-tes. or uni-
n communcaton e orts.mu n e
eveopment Corporaton SLDC s respoato LD
straton. Amy Lampe, Maor Pro ect Manstr . Am or t Man
coor inator. T e C ient Group team consistoor i C ien co
erner C ty o Sa nt Lous Drector o Sustty o s D s
t Louis P anning an Ur an DesP a Ur
ur 4 coor ination an rco a
ut t e course o te co
s an wowo
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DOWNTOWN SAINT LOUIS
SUMMARY OF EXISTING CONDITIONS
The Arch-Lacledes and Stadium MetroLink stations are both located within
the formal boundaries of Downtown Saint Louis, to the north and south of
the Citys core respectively. Both stations are located near regional destina-
tions and unique cultural amenities such as Busch Stadium (visited by over
three million fans a year) and the Jefferson National Expansion Memorial &
Gateway Arch (visited by over four million tourists a year). When combining
the specific destinations and attractions offered at each station with the
unique elevational positioning of the stations within the MetroLink System,
each station area offers a unique character and identity.
Arch-Lacledes Station
The Arch-Lacledes Station is an elevated single-platform station which
services Lacledes Landing, the J efferson National Expansion Memorial
& Gateway Arch, and Lumire Place. The station offers great views of the
Lacledes Landing National Historic District to the north, which boasts a range
of beautiful nineteenth century warehouse and commercial buildings along
1st Street and 2nd Street. This MetroLink stop is the first and last stop on
the Missouri side of the Mississippi River and is driven primarily by cultural
tourism ridership within the Station Area.
Approximately 30 years ago, many of the buildings in Lacledes Landing were
renovated to house restaurants, bars, offices, and residential units. While the
area thrived initially, new development in the region, a perception of violence,
and other problems have deterred visitors to Lacledes Landing over the past
decade. Despite the marked decline of Lacledes Landing in the past, recent
announcements show that local developers have a renewed interest in oppor-
tunities at Lacledes Landing. To begin to redevelop the area, there must be a
focus on creating a desirable residential neighborhood.
Some key characteristics of the Arch-Lacledes Station Area include the
following:
The Arch-Lacledes Station has 34,900 monthly boardings, which is
considered average ridership for the MetroLink system; The Station Area is near 15 MetroBus routes (having 12 stops within a
quarter-mile; though none are located within the Station Area);
The Station Area has a mean WalkScore of 79.5, though it is highly
disconnected from Downtown by Interstate 70 on the west;
The Station Area is primarily an entertainment and tourism destination
which includes the J efferson National Expansion Memorial & Gateway
Arch, Lacledes Landing, and Lumire Place;
The Station Area contains a fair amount of under-utilized sites including
surface parking lots and vacant sites, especially north of Lacledes
Landing Boulevard;
When combining thespecifc destinationsand attractions oeredat each station withthe unique elevational
positioning o thestations within the
MetroLink System,each station areaofers a uniquecharacter andidentity.
coo
staton wta w
e MetroLin Systetro
entity.ty
s an eevate singe-patorm station wan e stat
ng, t e J e erson Natona Expans onJ e on
, an Lumire P ace. T e station o ers grce. T
n ng Natona H storc Dstrct to t e nort ,ng str
auti u nineteent century ware ouse aneen ou
1st Street an 2n Street. T is MetroLinSt Lin
t e Mssour s e o t e Mssssppt e
tourism ri ers ip wit in t e Stato i t e
Approxmate y 30
renovate tore o
area tarea tbining thenfc destinationsio
d attractions oeredra och station wist
ique eue e
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The Station Area includes the Lacledes Landing National Historic District,
which includes some basic regulation of building character and quality
through the Secretary of the Interiors guidelines;
The Station Area contains a number of elevated pedestrian barriers
including Interstate 70 and the Eads & MLK Bridges.
Stadium Station
The Stadium Station is a below-grade, double-sided platform station which
serves the Cupples Station complex, Busch Stadium, and the future Ballpark
Village development. The station offers convenient access during St. Louis
Cardinals baseball games throughout the year, which is the primary driver of
ridership within the Station Area.
Over the past decade, the area surrounding the Stadium Station has changed
dramatically. Many of the Cupples Station buildings were renovated to
house hotels, office space, and residential units. A new Busch Stadium was
constructed immediately adjacent to the station and opened in 2006. The
first phase of Ballpark Village, an entertainment and dining complex located
immediately north of the stadium, is scheduled to open in spring 2014. While
the station is located next to one of the regions strongest attractions, there
has been little investment in dense, new development aside from Ballpark
Village.
Some key characteristics of the Stadium Station Area include the following:
The Stadium Station has 40,100 monthly boardings, which is considered
above average ridership for the MetroLink System;
The Station Area is near 18 MetroBus routes (having 25 stops within
a quarter-mile including Civic Center and the Gateway Transportation
Center);
The Station Area has a mean WalkScore of 82; though much of it is highly
disconnected by Interstate 64 on the south;
The Station Area is primarily a sports and entertainment destination
driven by attendance at St. Louis Cardinals games (and other events)
surrounding Busch Stadium throughout the year;
The Station Area contains an abundance of under-utilized sites includingsurface parking lots and vacant sites, especially south of Interstate 64;
Many blank structured parking garage walls and vehicular garage
entrances disrupt otherwise pedestrian-friendly streets and street
connectivity throughout the Station Area;
The Station Area includes the Cupples National Historic District, which
includes some basic regulation of building character and quality through
the Secretary of the Interiors guidelines.
PHOTOGRAPH OF 2ND STREETIN LACLEDES LANDING
PHOTOGRAPH OF BALLPARKVILLAGE UNDER CONSTRUCTION
PHOTOGRAPH OFBUSCH STADIUM
nge
ovate to
sc Sta ium wasta i
opene in 2006. T e006.
an nng compex ocatep oc
ue to open in spring 2014. W iee to 4 W i
t e regons strongest attractons, t eree s st c ere
ense, new eveopment asi e rom Baew o r
c aracteristics o t e Sta ium Station Area iar ics o Sta ea i
T e Sta um Staton as 40,100 monta as t
a ove average ri ers ip or t e Mver ip
e Station Area is near 18tion ne
uarter-m e nc u nr-m
er ;
ation An
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ARCH-LACLEDES STATIONAREA PLAN SUMMARY
The Arch-Lacledes Station Area Plan was conceived in order to establish a
singular, united mixed-use district along the Saint Louis riverfront, which will
connect the J efferson National Expansion Memorial & Gateway Arch to the
Lacledes Landing National Historic District and Lumire Place. By focusing
infill development around existing assets within the Landing area and taking
advantage of under-utilized areas to the north, a singular district can be estab-
lished that will foster the addition of new businesses into the area while simul-
taneously transforming a majority of the area into a unique, riverfront living
district.
Within this strategy, the Station Area Plan proposes to fortify the connections
between the Central Business District and Columbus Square by strengthening
both pedestrian and vehicular connections underneath and through Interstate
70. This action will build on the work of CityArchRiver 2015 and feed on the
energy established by the westward march of Washington Avenue through
the MX District. By reinforcing this relationship to Downtown and facilitating
a greater level of access for pedestrians and cyclists, the perceptions of the
area will be transformed, and a new identity will be borne.
When combined with the proximity to the Gateway Arch grounds and St.
Louis Riverfront Trail access, the opportunity to build new open spaces as
a neighborhood framework is a realistic possibility. Imagine living in an area
where the J efferson National Expansion Memorial was your dog park. This
unique positioning to Downtown Saint Louis and the riverfront further builds
the argument that this station area is the foremost opportunity in the region
for a new riverfront neighborhood. The images on the following pages briefly
summarize the Station Area Plan.
Perhaps one o themost important assets
o this area andparticular only tothis MetroLinkStation on the
Missouri side,this area ofers theunique possibility
o establishing anew riverrontliving district inDowntown Saint
Louis.
ARCH-LACLEDES
STATION AREA PLAN 2043
ES STATIONTASUMMARYY
Arc -Lace es Station Area P an was concs wa
s nguar, unte mxe -use strct a ong te - ng t
connect t e J e erson Nationa Exp on N
Lac e es Lan ng Natona HL ona
in eveopment arouni e
a vantage o unun
s e t at ws
taneoaneo
assets
ea andanicular only tol to
s MetroLinktron on theon
ri sidsi
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LEGEND
NEW MIXED-USE DEVELOPMENT
NEW RES IDENTIAL DEVELOPMENTNEW STOREFRONT RETAILNEW PARKING GARAGENEW SIGNATURE INTERSECTIONNEW CROSSWALKSNEW MIXED-USE TRAILNEW BIKE LANESNEW OPEN SPACENEW PLAZA | PUBLIC SPACERIVERFRONT | FUTURE PARKSEXISTING BUILDINGSRENOVATION OF EXISTING BUILDINGFUTURE DEVELOPMENT
ARCH-LACLEDES STATION AREA PLAN
Proposed Development Program:
Residential: 1000 Units (1,000 S.F./Unit)
Retail: 150,000 S.F.
Office: 250,000 S.F.
Hotels: None
Structured Parking: 1,500 Spaces (South of Biddle Street)
Parks & Plazas 300,000 S.F.
Building Heights: 3 - 8 Stories (See Code for Range)
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ARCH-LACLEDESSTATION AREA PLAN 2043
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STADIUM STATIONAREA PLAN SUMMARY
The Stadium Station Area Plan was conceived in order to seam the historic
buildings of the Cupples Complex and the new developments in Ballpark
Village into a singular, cohesive mixed-use district which will frame Busch
Stadium and reinvent the entryways into this area of Downtown Saint Louis.
Furthermore, the plan places a significant importance on the immediate station
area and the first impressions that the rider experiences when arriving to the
Station Area. By focusing the transformation of the immediate station area
with new development and streetscape improvements, this area can reach
the full aspirations and goals of the transit oriented district.
Firstly, by configuring some of the infrastructure related to Interstate 64, the
Station Area can take advantage of new opportunities for development and
build on the existing assets of the Cupples Historic Complex. Infilling this area
will insert a critical mass of residents that balance the mix of uses with the
existing offices and other hotels adjacent to the area. Forming the northern
portion of the Station Area, the Ballpark Village site offers the unique oppor-
tunity to build an office, retail, and residential district near Busch Stadium. In
what amounts to essentially a blank slate, the character of this developmentcan build from the identity of the stadium while establishing a new character
defined by walkable scaled blocks for workers and great views of the game for
residents and hotel guests.
When all of these areas arefilled out, the character and identity of the Stadium
MetroLink Station, and the first experience of the rider, will be transformed
from vacancy and surface parking to an active, vibrant transit oriented district
that is built around the character of the Cupples Historic Complex and the
vibrancy of Busch Stadium.
STADIUM
STATION AREA PLAN 2043
When all o theseareas are flled out,the character andidentity o the Stadium
MetroLink Station, andthe rst experienceo the rider, will be
transormed romvacancy and suraceparking to an active,vibrant transitoriented district
IONSUMMARYY
ta ium Station Area P an was conceivet tion con
u ngs o t e Cuppes Compex an te upp n t
Vi age into a singuar, co esive mis ar, c
Sta um an renvent t e entrS e e e
Furt ermore, t e pan pF
area an t e rstrs
Staton AreSt
wtto theseas are flled out,re oucharacter andra dtity o the Stao t
ink Sk
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LEGEND
NEW MIXED-USE DEVELOPMENT
NEW RES IDENTIAL DEVELOPMENTNEW OFFICE DEVELOPMENTNEW STOREFRONT RETAILNEW HOTEL DEVELOPMENTNEW PARKING GARAGENEW SIGNATURE INTERSECTIONNEW CROSSWALKSNEW BIKE LANESNEW OPEN SPACENEW PLAZA | PUBLIC SPACEEXISTING BUILDINGSFACADE IMPROVEMENTSFUTURE DEVELOPMENTPOSSIBLE STREET CONNECTIONSPOSSIBLE MIXED-USE TRAIL
STADIUM STATION AREA PLAN
Proposed Development Program:
Residential: 800 Units (1,000 S.F./Unit)
Retail: 250,000 S.F.
Office: 650,000 S.F.
Hotels: (1) Total (600,000 S.F. estimated)
Structured Parking: 0 Spaces
Parks & Plazas: 35,000 S.F.
Building Heights: 3 - 10 Stories (See BES for Range)
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STADIUMSTATION AREA PLAN 2043
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PROPOSED VIEW OFSECOND STREET
IMPLEMENTATION SUMMARY
OVERALL DEVELOPMENT CONSIDERATIONS
Successful implementaton of all the Station Area Plans will require taking the
Plans on the road. The City of Saint Louis should make presentations to and
have conversations with partner organizations, public and private, including
professional associations that represent components of the real estate devel-
opment industry (e.g., Urban Land Institute, Board of Realtors, American
Institute of Architects, American Planning Association, Associated General
Contractors, and so on). The City should prepare presentation materials along
with ideas for implementation (discussed further below) and should schedule
meetings as soon as, and as often as, possible. A result of this widespread
policy recognition will, and should, be creation of appropriate partnerships to
implement prioritized parts of each plan. Almost certainly, the City and Metro
should be partners around both stations.
The City and Metro can take it upon themselves to initiate formal partnership
discussions with others and to draft memoranda of understanding that will
lead, as soon as possible, to formal development agreements and/or requests
for proposals to developers and master developers.
Especially for the City and Metro, each should identify resources that will
be offered to the prioritized redevelopment projects. Money, access to and
preparation of applications for various governmental and foundations grants,
incentive programs and their creation/management, fast-track permitting,
political advocacy, staff support and expedited reviews, etc., should all be
offered as part of a package to entice the private market and land owners to
move quickly toward plan implementation.
ARCH-LACLEDES STATION AREA IMPLEMENTATION ACTION ITEMS
While the Landing was redeveloped in the 1980s to much fanfare, the area has
declined over the past decade. The development of Lumire Place Casino and
Hotels has not brought a substantial increase in visitors to the area. Despite
more recent positive trends, the MetroLink station has not yielded that dense,
mixed-use development that would encourage increased use of transit and
create a truly urban atmosphere. While some issues are beyond the Citys
control, the City can play a key role in cleaning up the Landing and providing
for future development in the area. We recommend that the following activities
commence in October 2013:
A result o thiswidespread policyrecognition will, andshould, be creationo appropriate
partnerships toimplement prioritized
parts o each plan.Almost certainly,the City and Metroshould be partnersaround both stations.
atet
a tors, Ameor
, Associate Gen, soci
presentation materias a one m
urt er e ow an s ou sc e u eou
as, possi e. A resut o t is wi esprea, i is
ou , e creation o appropriate partners ip, e artn
rts o eac pan. A most certa ny, t e C typa o ty
s aroun ot stations.ions.
ty an Metro can ta e it upon t emsevestro c e
iscussions wit ot ers an to ra t meit t er me
ea , as soon as poss e, to ormas s e,
or proposa s to eveopers ano o pers
Espec a y or t er t
e o ere te
preparreparthissespread policyre cy
ognition will, andti , a ld, be creatiobe i
ropriar a
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1. Focus initial efforts on achieving the market-supported developmentrecommended in the BAE report;
2. Work with the Metropolitan Police Department and business owners tocurb violence or other undesirable activities. Similar to the recent issueson Washington Avenue, the City must show an immediate concertedeffort to clean up the area. Police or other security should be visible atall times of day both in the Landing and at parking lots along LeonorK. Sullivan Boulevard. Bar or restaurant owners especially those with3 a.m. liquor licensesmust be made responsible for violence or otherissues with their patrons at closing;
3. SLDC, the City Streets Department, MoDOT, and any other willing partic-ipant must invest in improving the pedestrian experience to the Landingfrom downtown. While the proposed infrastructure changes will reorientstreets and provide better vehicular activity, it is crucial that seriousconsideration is given to lighting, noise reduction, and wayfinding toenhance the sense of safety at the front door to the Landing;
4. While the National Parks Service has yet to make a decision regardingdedicated parking for the Gateway Arch grounds, the Lawrence Groupand Drury Hotels has proposed to construct a substantial mixed-usebuilding at the front door to the Landing. This represents a major newinvestment in the heart of the Landing, and the City must find ways tosupport the project;
5. While the CID and the business association are a good start, there mustbe a dedicated group focused on the long-term vision for the Landing.
STADIUM STATION AREA IMPLEMENTATION ACTION ITEMS
Much of the identified redevelopment to occur in or around the Stadium Station
will be completed as part of the Ballpark Village development; however, certain
key issues remain in the area and must be addressed by the City to ensure
that future phases of Ballpark Village and other developments will occur in the
future. While some issues are beyond the Citys control, the City can play a
key role in kick-starting activity in the area. We recommend that the following
activities commence in October 2013:
1. Focus initial efforts on achieving the market-supported developmentrecommended in the BAE report;
2. Discuss possible development or joint venture opportunities with theowners of the parking lot to the south of the Tums Building. Secureproperty if possible;
3. SLDC must offer ongoing support for the Ballpark Village development.
PHOTOGRAPH OFSTADIUM STATON
PHOTOGRAPH OF BALLPARKVILLAGE UNDER CONSTRUCTION
PHOTOGRAPH OFMORGAN STREETCONSTRUCTION
ar ingnce Group
ntia mixe -usemiresents a maor newa
e C ty must n ways towa
ciation are a goo start, t ere mustation t, er mut e ong-term vision or t e Lan ing.e -term e g.
IMPLEMENTATION ACTION ITEMSTA S
enti e re eve opment to occur in or arouni re e ccu aroun
ompete as part o t e Ba par Vi age evepe t o t ag
y ssues rema n n t e area an must ere area e
uture p ases o Ba par Vi age aas ar
. W i e some issues aree so s
n c -startng act-st a
ommenceence
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SUMMARY OF FUNDING CHALLENGES & STRATEGIES
At this time, the City of Saint Louis has an array of development tools to help
offset some costs. Tax Increment Financing, a tool that allows a developerto collect incremental real property and economic activity tax revenue, is a
popular way to finance property acquisition, infrastructure improvements, and
renovation costs in the city. Other tools, such as Community Improvement
Districts, allow for a developer to generate funds for area amenities or other
programs. Gap financing can come from private sources as well. It should be
noted that competition for these limited resources is great. Other potential
sources of gapfinancing include: the Business Community, Community-Based
Organizations, Developers, Financial Institutions, and Philanthropic Organi-
zations. In addition to tools geared towards property redevelopment, the City
offers some assistance to small business owners in the form of grants, tax
credits, and other specialized programs. In order to entice businesses into
each station area, it is critical that these programs be marketed towards the
business community.
Specialized Development Incentives:
Tax-Exempt Bond Financing: This bond incentive provides long-termcapital financing for major projects.
Chapter 100 Bond Financing: This bond incentive provides long-termcapital financing for major projects.
Chapter 100 Sales Tax Exemption: Used in conjunction with Chapter100 Bonds, the Chapter 100 Sales Tax Exemption reduces the costs of
purchasing non-manufacturing equipment. The Small Business Association 7(a) Loan Guaranty: The SBA providesfinancing to small businesses with reasonable terms.
New Markets Tax Credits (NMTC): These credits are typically used toattract investments to low-income areas and offer tax credits for a portionof the investment. Typically, NMTC are utilized for large areas of redevel-opment to increase return.
Historic Tax Credits: Offers tax credits for owners of recognized historicstructures.
SUMMARY OF FORM-BASED CODE RECOMMENDATIONS
Both stations half-mile transit sheds also serve as the boundaries of the
Station Area Form-Based Districts. Within these areas, a form-based districtwill apply, as outlined in the Building Envelope Standards recommendations
in the Implementation section of this document. Building Envelope Standards
regulate the allowable placement of buildings, land uses, and types of
buildings, as well as establish requirements for the placement of parking for
a given area. The intent of the Building Envelope Standards is to regulate
future development to be respectful of height, use, and historic resources. All
new development within the Form-Based District will abide by the regulations
described herein.
ARCH-LACLEDESSTATION AREA PLANESTIMATED FUNDING GAP
FINANCIAL RETUR
EVELOPMENT COS$293.4 M
DEVELOPMENT VALUE
$197.2 M
FUNDING GA$96.2 M
AVAILABLE PUBLICSUBSIDY$59.8 M
RETURN WITHOUAP FINANCIN
7.4%
RETURN WITHGAP FINANCING10.8
LAND RESIDUALVALUE @ 15%$27.2 M
AND RESIDUALALUE @ 20$36.2 M
STADIUMSTATION AREA PLA
DEVELOPME$514.6 M
FU$92.
$145.0 M
RETURN WITHOUTGAP FINANCING5.8%
RETURN WITAP FINANCIN
6.7%
LAND RESIDUALVALUE @ 15%$70.9 M
AND RESIDUALVALUE @ 20%$94.6 M
. t er potp
y, Community-Ba, Com
, an P ant ropc Organnt
property re eve opment, t e Citypm
ness owners in t e orm o grants, taxs o
rograms. In or er to entce usnesses ngra us nica t at t ese programs e mar ete towt e g tow
.
ze Deve opment Incentives:ve op
ax-Exempt Bon Financing: T isp n icapita nancing or major proa n or
C apter 100 Bon Fina1 Ficapta nancng ora r
C apter 100 S1100 Bon ss
purcCOST
422.3 M
DING GAPAPM
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In the Arch-Lacledes Station Area Form-Based District, the goal is to concen-
trate the majority of the commercial activity along 2nd Street and 3rd Street
and the majority of residential and neighborhood services along 1st Street,
while respecting the historic nature, scale, and form of the Historic Lacledes
Landing area. In the Stadium Station Area, the goal is to concentrate the
majority of the residential uses within the Cupples Historic Complex, while also
allowing a mixed-use area of office, residential, and hotels to develop within
Ballpark Village and the areas surrounding Busch Stadium. The Regulating
Plan, with the recommended Building Envelope Standards to achieve these
goals, for both Station Area Plans, is shown above.
LEGEND
URBAN GENERAL TYPE 1 (UG1)
URBAN GENERAL TYPE 2 (UG2)
URBAN GENERAL TYPE 3 (UG3)
CAMPUS TYPE 1 (CM1)
PROPOSED REGULATING PLAN FOR ARCH-LACLEDES STATION AREA & STADIUM STATION AREA
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1 | Introduction
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Te proximity o thesestations providesDowntown Saint Louiswith excellent access totransportation, as wellas aramework tobuild and establish
a critical mass oactivity throughnew living andworking districts inDowntown.
INTRODUCTION
The Arch-Lacledes and Stadium MetroLink stations are two of the most
important entertainment and cultural tourism stations in the entire MetroLink
system. Both stations are located within and provide service to Downtown
Saint Louis, as well as to regional destinations such as Busch Stadium and
the Jefferson National Expansion Memorial & Gateway Arch. These stations
are just two of the five stations which serve Downtown Saint Louis, including
areas such as the Central Business District, the Washington Avenue / Garment
District, Columbus Square, and the Cupples Station / Ballpark area.
These two stations, along with the other three Downtown stations, are all
located within a one mile radius of each other. The Arch-Lacledes Station
is the first and last stop on the MetroLink system between Missouri and
Illinois. To the south, the station offers immediate access to the J efferson
National Expansion Memorial & Gateway Arch. To the north, the station offers
convenient transportation for the visitors and workers within the Lacledes
Landing area, as well as access to the Saint Louis riverfront and Lumire
Place. The Stadium Station is immediately adjacent to the new Busch
Stadium, and the primary ridership is attributable to attendees of Cardinals
baseball games and a limited amount of employees working in the area.
Despite the surrounding assets and the 20-year history of MetroLink in Saint
Louis, the development potential surrounding both of these stations has
never been realized. Much of the areas surrounding both of these stations
contains an abundance of surface parking lots and vacant sites for new devel-
opment. While historic assets and key destinations at both stations provide an
excellent opportunity to build the character of transit oriented development,
there have been limited new developments in either areas. The proximity of
these stations provides Downtown Saint Louis with excellent access to trans-
portation, as well as a framework to build and establish a critical mass of
activity through new living and working districts in Downtown.
The City of Saint Louis, Saint Louis Development Corporation, Metro, and
their partners possess a significant opportunity to establish the Arch-Lacledes
and Stadium Station Areas as significant new living and working districts in
Downtown Saint Louis. By targeting specific opportunities and linking existing
assets to a community-based vision for downtown development, the leadership
can foster a place that supports transit oriented development through the
creation of vibrant and active streets and public spaces. The Transit Oriented
Development (TOD) Plan for the Arch-Lacledes and Stadium MetroLink
Stations is a roadmap for the City of Saint Louis, its partners, and the devel-
opment community to achieve the development promise of MetroLink light rail
transit.
CITY GARDEN INDOWNTOWN SAINT LOUIS
mity o theseons providess s
wntown Saint Louistexcellent accee cortatiat
, in, i
enue / Garn
a par area.r a
t ree Downtown statons, are astat
eac ot er. T e Arc -Lac e es Stationa c e
t e MetroLin system etween Missourie Met Mis
e staton o ers mme ate access to t eer t e
n Memoria & Gateway Arc . To t e nort , teway .
ransportaton or t e vs tors an wor erssp s tor
ng area, as we as access to t e Saint Lw t e
P ace. T e Sta ium Station is imme iam e ia
Sta um, an t e prmary r ers pt rmar
ase a games an a imites imit
Despte t e surrouur
Louis, t eLo
neverever
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EXISTING STATION AREA CONTEXT PLAN SHOWING DOWNTOWN SAINT LOUIS
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26|Draft Transit Oriented Development Plan for the Arch-Lacledes and Stadium MetroLink Stations
PLAN OBJECTIVE
The Transit Oriented Development (TOD) Plan for the Arch-Lacledes and
Stadium MetroLink Stations (the Plan) establishes an actionable 30-year
plan for new development supported by access to transit. The Plan outlines
market-based development programs supported by proforma analysis for the
recommended Station Area development. The Plan includes recommended
improvements to existing streets, parks, and infrastructure that maximize
access to the stations and achieve environmental best management practices.
The Plan describes the estimated costs of these public infrastructure improve-
ments and outlines available mechanisms to provide incentives and aid in
implementation funding. Finally, the Plan proposes regulatory tools for the City
to pursue in the implementation process. In total, the Plan sets forth a market-
based, community-supported vision for transit oriented development around
the Arch-Lacledes and Stadium MetroLink stations, and a roadmap for the
City of Saint Louis to make this vision reality.
PLAN DEVELOPMENT & FUNDING
This Plan is funded with a portion of the $4.7 million Sustainable Commu-
nities Regional Planning Grant from the joint U.S. Department of Housing
and Urban Development (HUD)U.S. Department of Transportation (DOT)
U.S. Environmental Protection Agency (EPA) Partnership for Sustainable
Communities. This grant was awarded to and administered by the East-West
Gateway Council of Governments as part of OneSTL (formerly the Regional
Plan for Sustainable Development.) This plan builds upon the existing Saint
Louis TOD Framework Plan, which was completed by Design Workshop for
the entire MetroLink systems. As a Consortium Partner for OneSTL, the City
of Saint Louis is submitting both this P lan and the TOD Framework Plan to
East-West Gateway as part of the OneSTL Plan.
The Transit Oriented Development Plan for the Arch-Lacledes and Stadium
MetroLink Stations is closely aligned with the goals of the HUD-DOT-EPA
Partnership for Sustainable Communities Livability Principles. The Principles
are to: Provide More Transportation Choices; Promote Equitable, Affordable
Housing; Enhance Economic Competitiveness; Support Existing Commu-
nities; Coordinate and Leverage Federal Policies and Investment; and Value
Communities and Neighborhoods.
In order to achieve these principles through actionable implementation
initiatives, the Plan is comprised of the following components: 1) economic
analysis and development proforma outlining the Station Area development
program, projected costs, land values, and development gaps; 2) transpor-
tation analysis outlining street, sidewalk, and public space improvements,
Te Plan sets orthamarket-based,community-supported vision
or transit orienteddevelopmentaroundthe Arch-Lacledes and
Stadium MetroLinkstations, and a roadmapor the City o SaintLouis to make thisvision reality.
CURRENT CONSTRUCTIONON 2ND STREET IN THE LANDING
m
ement pracr
n rastructure impror truc
rovi e incentives an ai ie tive
oposes reguatory toos or t e C tyoo
ess. In tota , t e P an sets ort a mar et-s t ort
vision or transit oriente eveopment arosion pme
Sta um MetroL n statons, an a roa metr s m
to ma e t is vision rea ity.n re
DEVELOPMENT & FUNDINGME
T is P an is un e wit a portion owit
nities Regiona P anning Grani ng
an Ur an Deve opmena v n
U.S. Envronmentm
CommunitieC
GatewGatew
Psets orths
arket-based,k d,mmunity-n
orted visionte onsitsi
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parking, and multi-modal transit access; 3) stormwater and environmental
planning analysis outlining performance criteria and green infrastructure best
management practices; 4) public improvement cost estimates and funding
tools; and 5) a Form-Based District Regulating Plan, Building Envelope
Standards, and recommended changes to the City of Saint Louis Strategic
Land Use Plan.
Strengthening existing neighborhoods and connecting residents to transit is
a major component of sustainable neighborhood development and a stated
requirement of this Plan. The project Study Area incorporates the 10-minute
walk shed (half-mile) for the Arch-Lacledes and Stadium stations. This area
extends from approximately one-half block north of Biddle Street to the north
to approximately one-half block south of Chouteau Avenue to the south; and
from the Saint Louis riverfront to the east to approximately one-half block
west of 14th Street to the west. Downtown Saint Louis is home to approxi-
mately 14,000 residents, and has seen over $5 billion dollars in both public
and private investment since the early 1990s. These areas offer a significant
opportunity for new development which will enhance connectivity, mobility,
and access to transit.
PARTNERS & ADMINISTRATION
The planning process is administered by the Saint Louis Development Corpo-
ration (SLDC). SLDC, in partnership with the City of Saint Louis Planning
and Urban Design Agency, forms the Client Group (Client) for the Plan. The
Project Team lead is H3 Studio, performing project direction, transit oriented
development planning, and project management. Project Team partner
Development Strategies performs economic development program analysis
and funding plan development. Bernardin, Lochmueller & Associates (BLA)
performs transportation, parking, and connectivity planning and ridership
projections. Innis Consulting assists BLA with transit policy and operations
recommendations. M3 Engineering Group (M3) develops the civil and environ-
mental engineering recommendations and cost estimates. Finally, and Vector
Communications leads public outreach and communication efforts.
The Saint Louis Development Corporation (SLDC) is responsible for the
project administration. Amy Lampe, Major P roject Manager, is in charge as
project coordinator. The Client Group team consists of Amy Lampe, Catherine
Werner (City of Saint Louis Director of Sustainability), and Don Roe (City of
Saint Louis Planning and Urban Design Agency Director. The project team
held four (4) coordination and review meetings with the Client Group team
throughout the course of the planning process for regular guidance and review
of materials and work products.
Fn
a oc
me to approxi-to
dollars in both publicoth
ese areas o er a sgn cantgn
en ance connectivity, mo i ity,vi o i i
RATION
process is a ministere y t e Saint Louisro is a t e Louis
SLDC . SLDC, in partners ip wit t e CiDC . n pa t
Ur an Des gn Agency, orms t e C entDe y, o nt
ect Team ea is H3 Stu io, peroe tu
pment panning, an pp an
ment StrategesStr s
g panan
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PLANNING PROCESS
This Study took place over the course of six months and involved regular
interface between the Client Group and the Project Team. In addition, the
Project Team met with an assembled Technical Advisory Committee (TAC)
and conducted extensive public and stakeholder outreach. These efforts
allowed the Project Team to collect a large amount of data and feedback from
a wide cross-section of neighborhood residents, institutional and govern-
mental staff, and community members. The public and stakeholder outreach
initiatives have helped to enrich the recommendations of the study and have
helped to build a broad base of consensus and support for the project.
TECHNICAL ADVISORY COMMITTEE (TAC)
The purpose of the Technical Advisory Committee was to provide directed
guidance to the Planning Team and review of in-progress work, public
engagement materials and initiatives, and public work products. The Advisory
Committee was comprised of representatives from key agencies and insti-
tutions involved in the Plan, including the Lacledes Landing Community
Improvement District, the East-West Gateway Council of Governments,
Metro, the Board of Public Service, the St. Louis Cardinals, the Partnership
for Downtown Saint Louis, the Missouri Department of Transportation, local
developers, and the City of Saint Louis. Refer to the Acknowledgements
section on page 2 for a complete list. The Technical Advisory Committee was
identified by the Client Group, with assistance from the Project Team, to serve
as a representative cross-section of project partners and stakeholders for
decision-making and feedback.
STAKEHOLDER INTERVIEWS
Additionally, the Client Group and the Project Team identified 12 key project
stakeholders to be interviewed initially as part of the planning process. Stake-
holders included business and property owners, local developers, City staff,
Alderpersons, institutional representatives, non-governmental organizations,
and other interested parties. These stakeholders were invited to speak with
the Project Team in one-on-one, confidential work sessions. These Stake-
holder Interviews were one of multiple key components in shaping the Project
Teams understanding of the Station Area, surrounding neighborhoods, and
transit use and accessibility. While comments provided by the stakeholders
are confidential and not attributed to any particular individual, information
collected is compiled in the Consensus Issues and Consensus Ideas.
PLANNING PROCESSSCHEDULE
Project Kick-OffMeetingMarch 13, 2013
Client GroupCoordination Meeting 02April 11, 2013
Technical Adv isoryCommittee (TAC)
eeting 0ay 10, 2013
Public Workshop 01May 23, 2013
Initial StakeholderInterviewsune 2 1
ec nCo
CliCoo eeting 03uly 10,
Addi tional Stakeholder
Interviewsuly 2013
Client GroupCoordination Meeting 04August XX, 2013
o er outo
o t e stu y ane st
upport or t e project.rt e p
E (TAC))
nca A vsory Commttee was to provsor v
P anning Team an review o in-progren r w
matera s an nt atves, an pu c wor pater , an
ittee was comprise o representatives rs co ent
tutions invo ve in t e P an, inc u ing tt g t
Improvement D strct, t e East-Wect, t
Metro, t e Boar o Pu ic SerM ar u ic
or Downtown Saint Lou
eve opers, an tn
section on pse
i entientia v soryv smit tee (TAC)it C)
eeting 02ngune ,
nt Grouprodinatioatio
2
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In addition to these initial stakeholder interviews, and to be certain that the
planning process would reach the maximum amount of vested individuals,
Vector Communications conducted an additional set of six individual
stakeholder interviews as part of the process. While comments provided by
the stakeholders are confidential and not attributed to any particular individual,
information collected assisted the team to further develop the plan and form
a strategy for plan implementation. A full list of all stakeholder interviewees
conducted as part of this process is provided in the Appendix of this document.
PUBLIC ENGAGEMENT
In addition to the regular meetings with the Client Group team and Technical
Advisory Committee, the Project Team and Client conducted one Public
Workshop. The purpose of this Workshop was to present the Plan deliver-
ables to date and collect input and feedback from the attendees. The Public
Workshop was held on May 23, 2013, at Confluence Preparatory Academy
in Downtown Saint Louis. The Workshop began with a presentation by the
Project Team outlining the current development of the Plan. This presen-
tation lasted approximately 45 minutes. Following the presentation, attendees
worked in a small group to work hands-on with work boards that summarized
the content of the presentation. Attendees were encouraged to draw their
ideas on these work boards, which were collected by the Project Team for
review and summation. This small group work session about lasted 45 minutes
and concluded with a public report out of key ideas from the attendees.
Following each Workshop, the Project Team reviewed the comments selected
and prepared summary documents for the Client.
To maximize community participation, Vector Communications conducted a
public awareness and outreach campaign. The approach involved a compre-
hensive campaign that aimed to touch target audiences at least seven times.
These exposures occurred through: social media marketing, direct mail,
posters, phone calls, media relations, email marketing, online calendar posts,
and personal stakeholder invitations during interviews. A full report on the
public outreach process is provided in the Appendix of this document.
PUBLIC MEETING PHOTOGRAPH
PUBLIC MEETING PHOTOGRAPH
PUBLIC MEETING PHOTOGRAPH
ic
e ver-
ees. T e Pu ic. T
reparatory Aca emyr Ac
wt a presentaton y t ea n
pment o t e P an. T is presen- T rese
s. Fo owing t e presentation, atten ees. F ng t n ees
an s-on wt wor oar s t at summarz-on or z
ntation. Atten ees were encourage to ree er to
r oar s, w c were co ecte y t e Prre c cte r
mmaton. T s sma group wor sesson an. T or on a
nc u e wit a pu ic report out o eyu e u ic o
owng eac Wor s op, t e Pro ect Teamac , t e m
prepare summary ocuments ors cu
ze communtyco y
reness aess a
OT
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2 | Project Background & Context
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SAINT LOUIS AS A TRANSIT CITY
The historic settlement patterns of Saint Louis have produced an urban
morphology that is well suited for walkability and transit. Small blocks and
tightly-knit residential neighborhoods are punctuated with numerous parks
and street-corner commercial districts distributed evenly throughout the City.
Over the past century, the Citys street grid has evolved with the introduction of
boulevards, streetcar lines, and interstate highways. Despite these changes,
the City has remained a nexus of transit in the larger Saint Louis region.
Once the countrys fourth largest city, much of Saint Louis early development
and intensity was tied to the various forms of early transit. For decades,
the Citys many distinctive neighborhoods flourished as traditional streetcar
suburbs. Residents commuted to jobs Downtown or in the northside indus-
trial districts, they were mostly otherwise able to accommodate their everyday
needs close to home. While the last streetcar in the Saint Louis region ceased
operation in 1966, today the City of Saint Louis is ready to re-embrace transit
oriented development to support connectivity of all residents to jobs, homes,
shopping, and parks.
THE POSITIVE IMPACTS OF TRANSIT ORIENTED DEVELOPMENT
In 1993, Metro began operating MetroLink, the regions first light rail system.
Despite 20 years of service, MetroLink stations have not delivered on the
promise of transit oriented development. Nevertheless, many of the neigh-
borhoods retain a tight-knit residential base, and shifting demographic trends
have resulted in new demand for these communities. The City must now
capitalize on this momentum to foster new development and sustainable infra-
structure to support these communities as they strive to grow and prosper.
Transit oriented development is characterized by a variety of uses (residential,
retail, office, and commercial) in mixed-use buildings with sidewalk or
storefront access. TOD also supports increased density with multi-story
buildings. Transit oriented development capitalizes on access to transit and
the increased land value and greater numbers of pedestrians walking to the
transit station. It most often occurs in cities around light rail transit stations.
Rail lines are perceived as a more permanent type of transit infrastructure
than bus routes or other rubber wheeled modes of transit. This permanence
encourages and facilitates larger investments in development and, in turn,
allows for more concentrated, compact, and intense development to occur.
Increased development density is more efficient, requiring fewer resources
and less infrastructure per capita. This efficiency helps to preserve valuable
land and resources.
Total trackage in 1881was 119.6 miles; thecompanies owned 2,280
horses and mules and496 cars, employed morethan a thousand workers,andcarried 19.6million passengers.
James Neal Primm
Lion o the Valley
IMAGE OF HISTORIC SAINT LOUIS
cc
us regon.s o
aint Louis eary eveopmeno ry
ms o eary trans t. For eca es,s . F
oo s ouris e as tra itiona streetcaro o tion
to jo s Downtown or in t e nort si e ino jo rt s
osty ot erwse a e to accommo ate t e rrw s e r
e. W i e t e ast streetcar in t e Saint Louistree
1966, to ay t e C ty o Sa nt Lous s rea6, an
e eveopment to support connectivity omen nect
s opping, an par s.p s.
THE POSITIVE IMPACTS OFT E TS
In 1993, Metro eo
Despite 20D
promiromi
trackac
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Because of this efficiency, TOD is inherently more sustainable than other
types of single-use and auto-dependent development. Transit oriented devel-
opment has been shown to:
Increase land and property values in the Station Area;
Improve access to employment for citizens of all income levels;
Reduce car trips and greenhouse gas emissions;
Reduce costs for infrastructure upkeep and construction;
Increase walkabili ty within the transit shed by bringing needed services
to the Station Area;
Create opportunities for diverse housing at the Station Area and
within the transit shed;
Assure developers, entrepreneurs, and residents that transit service
will be sustained; and
Create a unique feature with in the City to attract residents, workers,
and visitors.
TOD AS A TOOL FOR SUSTAINABIITY
The City of Saint Louis has adopted a comprehensive, triple-bottom-line
approach to sustainability planning. The triple-bottom-line approach acknowl-
edges the three pillars of sustainabilityenvironmental stewardship, improved
social equity, and increased economic developmentas equal in their impact
on allowing current generations to meet their needs while protecting the
ability of future generations to do the same. Furthermore, it recognizes that
when taken together, these three pillars can be leveraged to increase positive
outcomes on multiple fronts. This is due to the fact that most sustainability
initiatives occur in the sphere of cities. Regardless of their specific focus, these
initiatives require some degree of investment of city funds. If one of the effects
of the initiatives is to increase property values or stimulate economic activity,
the tax base may increase enough to fully offset the cost of the initiative or
beyond. In addition, an increase in property value improves the investment of
individual residents, makes the community more desirable, and may lead to
an increase in other investments, both public and private. This has the effect of
increasing social equity by improving each individual residents investment
in their community and its return.
This type of success can be illustrated with the development of public transit
and transit oriented development. Through increased efficiency, mass transit
lowers the per-capita carbon emissions when compared to transportation by
car. This has a measurable impact on environmental sustainability. Proximity
TOD can be attractivewhen it is part o acomplete community...
A com plete com mun ity is opportu-nity-rich; all people have access toquality housing, education, employ-ment opportunities, open space andrecreation, retail, places of worship,healthcare, and transportation.This isto encompass the needs or householdsw c ren, w c may e ove oo ein areas aroun transit pan
Center for Tra n t
ares
ere kids can run
streets through invest-
treetscape and bicycle and
s r an mprovemen s;
Transit-accessi le schools which are
integrated into the community, rather
than separate from it;
Access to regional amenities such as
zoos and large parks;
Convenient access to daily shopping
such as groceries, clothing, or school
supplies; an
Access to regional employment op-
portunities via high-quality transit.
HE BENEFITS OF COMPLETECOMMUNITIES FOR FAMILIES AREBROAD AND INCLUDE:
Reduced spending on transportation
by owning fewer cars and driving less;
educed childhood obesity through
ncreased physical activity;
Reduced household stress through
shorter commute times an more time
or amily activities; an
Improved educational outcomes
through access to stable housing and
a range of supportive and enriching
activities.
ce
ents, wor ers,s,
a opte a compre ens ve, trpe- ottom-a re e -
panning. T e tripe- ottom- ine approactri ot a
rs o susta na tyenvronmenta stewarenv men
, an ncrease economc eve opmentasn rease ve tas
wing current generations to meet t eirng c erat t t
ty o uture generatons to o t e sameture ns t e
ta en toget er, t ese t ree pi artog e t
es on mutipe ronts. Tm nt
s occur n t e spur n
equire soire so
v
ng..
s t oriented Developmrien
CHILDREN WHEN THEY OFFER:D OF
A sense of community and plac an
roug nves men n par s,u r s,
and community events;n c
A neighborhood
and bicycle
ment in
pepe
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HUD-DOT-EPAPartnership forSustainableCommunities
Livability Principles
rovide more transportationchoices: Develop sa e, reliable, aneconomical transportation choices to
ecrease household transportation
costs, reduce our nations
dependence on foreign oil, improve
air quality, reduce greenhouse gas
emissions, and promote public health.
romote equitable, affordablehousing: Expand location- andenergy-efficient housing choices for
people of all ages, incomes, races,
and ethnicities to increase mobility
an lower the com ine cost o
ousing and transportation.
Enhance economiccompetitiveness: Improve economiccompetitiveness through reliable and
imely access to employment centers,
educational opportunities, services
and other basic needs by workers, as
e as expan e usness access o
markets.
Support existing comarget federal fund
commun es
e rans
deve
oo erapolic nt:Alignfederal funding to
remove s to collaboration,
leverage funding, and increase the
accountability and e ectiveness
o all levels o government to plan
or uture growth, including making
smart energy choices such as locallygenerated renewable energy.
alue communities andneighborhoods: Enhance the uniquecharacteristics o all communities
y investing in healthy, sa e, an
alkable neighborhoodsrural,
urban, or suburban.
34|Draft Transit Oriented Development Plan for the Arch-Lacledes and Stadium MetroLink Stations
and access to public transit raises property values, which provides a positive
economic impact to both the City (through an increased tax base) and
individuals (through an increase in real estate value). Regular use of public
transit reduces annual transportation costs to households, which increases
individual wealth. This increase in wealth can have a positive effect on both
individual economic prosperity as well as social equity, because it enhances
individual empowerment within a community. People will choose to live closer
to convenient transit, increasing demand for housing. This spurs development,
creates jobs, and encourages residents to support local businesses.
These relationships, in combination with successful implementation of capital
improvement projects (streetscape and park development, transportation
and accessibility improvements) and ongoing policy, programming, and
partnership initiatives, support proposed TOD. They cause the economy to
increase its pulse at transit nodes as residents continue to invest in their
property, community, and social infrastructure. The character and identity of
the area will continue to grow and flourish, transforming it into a destination for
friends, family, and visitors, who in turn join in the economy of placemaking.
CURRENT PLANNINGINITIATIVES & STUDIES
There are a number of existing plans and current planning initiatives in and
around the Arch-Lacledes Station and Stadium Station Study Areas. These
existing plans and planning efforts affect the future environment of transit
oriented development in the Study Area. The Station Area Planning project
coordinates with these plans to the extent possible. Current planning initia-
tives and studies include:
THE ST. LOUIS TRANSIT ORIENTED
DEVELOPMENT (TOD) FRAMEWORK PLAN (2013)
Commissioned by East-West Gateway and Metro as part of the $4.7 million
OneSTL planning process, the St. Louis TOD Framework Planestablishes a
framework for smart growth around existing Metro stations. The Framework
Plan establishes station area typologies that are used to classify each
MetroLink station based on ridership, population sheds, and adjacent land
use patterns. The Framework Plan examines the potential for economic devel-
opment around each station and provides recommendations for the existing
regulatory environment and public and private financing options.
nities:g toward existing
roug s ra eges
or e n e , m xe -useen , m xe
pment, and land recyclingtoe d recy
crease community revitalizatione co italiz
and the efficiency of public workseffici lic w
investments and safeguard ruralnts rd r
n scapes.es.
r na e an everagee an ges and investmd in
policies aies a
arrirri
en
ose to ive ce
is spurs eveopmurs
rt oca usnesses.a nes
t success u mpementaton o captac tato
scape an par eve opment, transportaa e tran
vements an ongoing poicy, programan oi m
es, support propose TOD. T ey cause tose
puse at transt no es as res ents contse as
rty, community, an socia in rastructure. Tnity, stru
e area w contnue to grow an ours , trn ue t s , tr
rien s, amiy, an visitors, w o in tuisito
CURRENTINITIATII
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OTHER STUDIES INCLUDE:
he Northside Regeneration
Project
he St. Lou is Gateway Mall
aster Plan
The River Landing
Chouteaus Landing
The Downtown Streetcar Study
The Mercantil e Exchange (MX)
Retail Distr ict Plan
Drury Renovations
SLU Law School
7th & 8th Street Improvements
The Multi-Modal Transportation
Study
he New Mississippi River
Bridge Project
arious Downtown Renovations
This is a DRAFT Document ONLY and shallbe subject to further review and revision 2|Project Background & Context |35
CITYARCHRIVER 2015 (2015)
CityArchRiver 2015 will make the Arch easier and safer for everyone to
experience by connecting, invigorating and expanding the parks grounds and
museums. There are several components to the project that, together, create
a whole that is far greater than the sum of its parts: a safe, accessible, and
enjoyable experience for residents and visitors that encompasses the energy
of the region, the power of the riverfront, and the calm beauty of an urban
national park. In addition to the renovations to the Gateway Arch grounds, the
project includes a number of major improvements to the surrounding streets
and riverfront area. Construction is expected to begin in 2013, and many of
the components will be completed by October 2015.
THE CITY OF SAINT LOUIS SUSTAINABILITY PLAN (2013)
The City of Saint Louis spent two years collaboratively developing the Citys
first sustainability plan. During the planning process, the City learned from its
stakeholders that they envision a Sustainable City of Saint Louis as being
vibrant, progressive, prosperous, integrated, diverse, and a leader. They see
these characteristics being built upon the solid foundation of the Citys neigh-
borhoods; its rich architecture and built environment; a better connection with
natural resources; and the talent, innovation, and knowledge of local industry,
cultural organizations, and higher educational institutions. The City-wide plan
includes hundreds of strategies to advance sustainability in the City and can
be found at http://www.stlouis-mo.gov/sustainability. This Plan is designed to
achieve the applicable goals of the City of Saint Louis Sustainability Plan.
BALLPARK VILLAGE PHASE 1.0 (2013 - ONGOING)
Ballpark Village is a mixed-use retail, entertainment, office, and residential
district being developed in partnership by the St. Louis Cardinals and the
Cordish Companies. Spanning seven city blocks on the 10-acre site just north
of Busch Stadium, Ballpark Village will be the countrys first fully integrated
mixed-use development designed to deliver the excitement and energy of
the gameday experience to a new neighborhood outside the stadium walls.
Phase 1.0 of Ballpark Village is currently under construction, and completion
is expected in 2014.
ST. LOUIS TOD
FRAMEWORK PLAN
eveoping t e Citysn t e
ss, t e C ty earne rom tsr ro
e City o Saint Louis as eingui s ei
grate , iverse, an a ea er. T ey seerat ivers e see
upon t e so oun aton o t e C tys net e ou
ture an ui t environment; a etter connecen m n
n t e ta ent, nnovaton, an nowe ge oton n o
izations, an ig er e ucationa institutiona , an tion itution
s un re s o strategies to a vance sustaiun ategi ce s
oun at ttp://www.stous-mo.gov/sustat tt ous ta
eve t e appica e goas o t e Ciapp as
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36|Draft Transit Oriented Development Plan for the Arch-Lacledes and Stadium MetroLink Stations
CONTEXT CONDITIONS
CHARACTER & LOCATION
The Arch-Lacledes and Stadium MetroLink Stations are both located within
the formal boundaries of Downtown Saint Louis, to the north and south of the
Citys core respectively. These stations are two of the five MetroLink stations
which provide transit service for Downtown Saint Louis. The core of the City
is traversed by both the Red and Blue Lines throughout the entire area, which
provides Downtown with consistent transit service and frequent headways.
Both of these stations are positioned where the MetroLink transitions from a
subterranean system to an at-grade system (in the case of Stadium Station)
or an elevated system (in the case of Arch-Lacledes Station). In both cases,
the train transitions from an enclosed, dark underground tunnel to a naturally
lit, open station area. Additionally, both stations are located near regional
destinations and unique cultural amenities such as Busch Stadium (visited by
over three million fans a year) and the J efferson National Expansion Memorial
& Gateway Arch (visited by over four million tourists a year).
When combining the specific destinations and attractions offered at each
station with the unique elevational positioning of the stations within the
MetroLink system, each station area offers a unique character and identity:
Arch-Lacledes Station
The Arch-Lacledes Station is an elevated single-platform station which
services Lacledes Landing, the J efferson National Expansion Memorial
& Gateway Arch, and Lumire Place. The station offers great views of the
Lacledes Landing National Historic District to the north, which boasts a range
of beautiful nineteenth century warehouse and commercial buildings along
1st Street and 2nd Street. This MetroLink stop is the first and last stop on
the Missouri side of the Mississippi River and is driven primarily by cultural
tourism ridership within the Station Area. Further details on this station are on
the following pages.
Stadium Station
The Stadium Station is a below-grade, double-sided platform station which
serves the Cupples Station complex, Busch Stadium, and the future Ballpark
Village development. The station offers convenient access during Saint Louis
Cardinals baseball games throughout the year, which is the primary driver
of ridership within the Station Area. Further details on this station are on the
following pages:
Tere are 25 residentsliving and 4,073employees working
within ahal-milewalking radius othe Arch-Lacledes
Landing MetroLinkStation.
PUBLIC ART ALONG THIRDSTREET IN LACLEDES LANDING
o t
ntre area,r a
requent ea war que
MetroLin transitions romo ans
m n t e case o Sta um Statonta
Arc -Lac e es Station . In ot cases,Ar a In
c ose , ar un ergroun tunne to a naturose , to
tona y, ot statons are ocate near, o t nea
nique cu tura amenities suc as Busc Staenitie
on ans a year an t e J e erson Natonan J e
eway Arc visite y over our mi ion tourivisi mi i
W en com nng t e spec c estn e sp
station wit t e unique eevst e e
MetroLin system, eacte
Arch-Lacle Ar
T eT e
re 252
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EXISTING STATION AREA CONTEXT PLAN SHOWING METROLINK STATIONS & WALKING RADII
LEGEND
EXISTING STATIONSQUARTER-MILE WALKING RADIUSHALF-MILE WALKING RADIUS
ABOVE-GRADE TRACKAT-GRADE TRACKBELOW-GRADE TRACK
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38|Draft Transit Oriented Development Plan for the Arch-Lacledes and Stadium MetroLink Stations
ECONOMIC CONDITIONS
ARCH-LACLEDES STATION AREA
The Arch-Lacledes Station is located within the Eads Bridge structure immedi-
ately north of the Gateway Arch grounds. To the north of the station, Lacledes
Landing features historic warehouse buildings and cobblestone streets. The
Lumire Place Casino is located to the north of Lacledes Landing. The Missis-
sippi River is located immediately to the east of Lacledes Landing. Interstate
70, located immediately to the west of Lacledes Landing, creates a significant
physical and visual barrier to the rest of Downtown Saint Louis to the west.
Approximately 30 years ago, many of the buildings in Lacledes Landing were
renovated to house restaurants, bars, offices, and residential units. While the
area thrived initially, new development in the region, a perception of violence,
and other problems have deterred visitors to Lacledes Landing over the past
decade. Over the past few years, CityArchRiver 2015 spearheaded an initi-
ative to improve the Gateway Arch grounds and the neighborhoods immedi-
ately adjacent to the grounds. Lacledes Landing will play a significant role as
a nearby dining and entertainment option as well as a location for dedicated
parking for the Gateway Arch.
Despite the marked decline of Lacledes Landing in the past, recent announce-
ments show that local developers have a renewed interest in opportunities at
Lacledes Landing. One proposed project includes a mixed-use residential
tower with both retail and parking garage components. Other developers
have expressed a wish to redevelop key buildings into residential multi-family
development. The local merchants association has expressed a desire to
transition the neighborhood to more residential uses and is actively investi-
gating the creation of a redevelopment corporation to help foster residential
development in the area.
To begin to redevelop the area, there must be a focus on creating a desirable
residential neighborhood. The negative consequences of conflicting uses
namely 3 a.m. liquor licenses must be minimized or eliminated to attract new
residents to the area. Efforts to improve the pedestrian and vehicular access
to Lacledes Landing from both Downtown Saint Louis and the Gateway Arch
grounds must occur to change the general perception of Lacledes Landing as
a dangerous, out-of-the way area.
While much of the issues with development in Lacledes Landing relate to
existing impressions of the area, there are key opportunities for redevel-
opment that must be addressed. A redevelopment project that would include
residential units, retail, and structured parking has been announced for the
LEONOR K. SULLIVANBOULEVARD IN LACLEDESLANDING
Despite the markeddecline o LacledesLanding in the past,recent announcements
show thatlocaldevelopers have arenewed interestin opportunities at
Lacledes Landing.
ee
n ng. Intet
g, creates a signi c, ate
n Saint Louis to t e west.i is t
t e ui ings in Lac e e