parker square redevelopment plan

PARKER SQUARE REDEVELOPMENT PLAN

DESIGN TEAM Capstone Project

Masters of Urban and Regional Planning students at the University of Colorado Denver

JARED PINKUS CAMERON SAVOIS

The capstone project of the Master of Urban and Regional Planning program at the University of Colorado Denver, represents the culmination of what the students have learned throughout the last two years. A MURP Capstone is a real-world, client-based planning project. Completing a unique, self-directed project gives students the opportunity to demonstrate the skills and knowledge they have gained, integrate and synthesize what they have learned and pursue their individual passions. Working with a real client enables students to apply their creativity and problem-solving abilities in a real-world context and demonstrate their professional competencies to both the faculty and future employers.

Contents

Introduction 3 Executive Summary 4

Existing Conditions 5 Community Outreach 13

Analysis 15

Vision 19 Character 21

Recommendations 23 Implementation 37 Next Steps 39

CHAPTER 1.0

Introduction

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Introduction

Parker

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The Parker Square subdivision was first developed prior to the incorporation of the town, a contributing factor to many of the ongoing issues such as a lack of vision or integration. Parker Square is made up of a mix of office and retail buildings, with poor infrastructure, as well as a lack of identity.

Due to economic pressures, The Town of Parker has overlooked this site resulting in limited investment. The capstone project has afforded the town an opportunity to change the status quo of the area and allocate some attention to the long standing issues. The Town of Parker would like to see Parker Square redeveloped as a unique destination that fits with the towns overall vision and goals.

The planning team was tasked with an-alyze the existing issues affecting Parker Square and create recommendations to address these challenges. The plan-ning team, in conjunction with Town of Parker Staff and key stakeholders, have created a vision

and plan for the area with a focus on reinvestment and redevelopment, resulting in a unique destination. Through place based design, community engagement, as well as regulatory alterations Parker Square has been reimagined into a new place entirely.

The Parker Square development is locat-ed on the southeast corner of South Park-er Road (SH 83) and East Hilltop Road. To the north of the site are two underde-veloped pads and a large substation, fur-ther hindering future connections to the area. The eastern edge of Parker Square is adjacent to a newer mixed-use devel-opment. This area was identified by town staff as having many qualities that would be ideal for the future vision of Parker Square. A medium sized residential de-velopment and vacant land are located just south of the site. Developments to the west of the site include many big-box stores and other national retail and restaurant chains.

Parker Square is located approximately 1/2 mile south of Mainstreet via South Pine Drive. The connection between these two areas was previously studied by Downtown Colorado Inc. which con-cluded that due to incompatible land uses and other barriers, these districts should remain separate, requiring each to have stand alone plans.

Executive Summary

CHAPTER 2.0

Existing Conditions

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Existing Conditions

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Context

Parker Square is an older mixed-use development located along the eastern edge of South Parker Road (STH 83), and along the southern edge of East Hilltop Road, one of the busiest intersections in the town. Continued development of commercial uses around this intersection is vital for Parker, as the town relies heavily on sales tax. As of 2013, retail sales tax accounts for 87% of total taxes, and 69% of the general fund total revenue. The heavy reliance on sales tax encourages the development of nation chains and big-box stores. Directly to the west of Parker Square is a newer big-box commercial development that includes: Sports Authority, Kohl’s, and Michaels. Increased traffic counts along these arterials and the reliance on sales tax

require this area to focus on commercial and retail uses which generate high revenue. Due to past oversights especially those related to the tremendous growth Parker has seen, this area has been overlooked.

Parker Square is an excellent example of a mature suburban development with out-dated infrastructure, little to no investment, and in need of significant attention. This report will analyze and present the best management practices for the alteration and betterment of the urban condition in Parker Square. The intention of this document is to present a comprehensive approach and understanding of the identified issues and provide potential innovative solutions.

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Existing Conditions

Wide Right of Way and high speeds entering Parker Square

Wide drive aisles, and steep grade trasitions

No sidewalks and curb cut too close to South Parker Road

No sidewalks along Parker Square Drive and exposed stormwater infrastucture

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Culture + Development

Grade seperation between buildings and parking

Poor sidewalk conditions and not connected

Vacant lots along Parker Square. Low visiblity of business

Vacant buildings with interesting architecture styles

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Existing Conditions

The road network within Parker Square is curvilinear with limited access points. The roads bordering the site are major arterials which allow for heavy and fast traffic. The roads within are single lane and do not connect in any coherent fashion. The connectivity to and through the site is poor with major intersections limiting access.

Road Network

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The land uses in the area are limited in diversity and are segregated. The predominant land use to the north of Parker Square Drive is commercial/retail while to the south is predominantly office. The limited uses and times of use are not conducive to creating an active area. Each parcel is comprised of one to three buildings with a single use for each. There are a significant number of vacant par-cels relative to the overall area.

Land Use

Commercial

Office

Vacant

Institutional


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Existing Conditions

Market Center Design DistrictPurpose and Goals of the Market Center Standards and Guidelines:

1. To establish a practical, interconnected system of streets, parks and walkways that allows easy orientation and convenient access for all modes of transportation.

2. To utilize natural open spaces, such as gulches, and developed public spaces, parks and plazas, to organize and coordinate development.

3. To accommodate a broad mix of development types that encourages alternative transportation, especially walking and transit use.

4. To provide common usable open space that is of mutual benefit to surrounding property owners, businesses and residents.

5. To construct the early phases of development in a manner that establishes a pattern and character for the long-term evolution of the Market Center.

6. To create a built environment that is in scale and character with pedestrian oriented activities.

7. To provide opportunities to increase Parker’s retail competitiveness within its trade area.

8. To encourage the long-term sustainability and vitality of Greater Downtown, including the creation of opportunities for new retail development and sales tax generation.

9. To ensure that future growth proceeds in a manner consistent with the vision of the community developed through the Downtown Strategic Action Plan process.

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Vehicular Infrastructure Improvements

Standard or Guideline Brief Description Pedestrian Infrastructure

ImprovementsStandard or Guideline Brief Description

Create an internal network of connections

Guideline - Site Access

Shared Vehicle Entries Between adjacent lots are strongly encouraged

Standard - Internal Pedestrian Access and Circulation

Adequate and sufficient pedestrian circulation shall be provided, where appropriate, to ensure connectivity within the development and to the adjoining properties and circulation network with minimum conflict with vehicular movement.

Extend Solar Circle to Hilltop Road

Standard - Site Access

Vehicular circulation shall comply with the Town’s endorsed Greater Downtown District Circulation Network Visionary Plan

Construct sidewalks where current gaps exist

Standard - Pedestrian Access and External Circulation

Pedestrian system continuity shall be provided regardless of the street discontinuity.

Improve existing sidewalks that are in disrepair or do not meet standards

Standard - Pedestrian Access and External Circulation

Detached sidewalks and an associated amenity/buffer zone is required on all public streets

Create internal pedestrian paths through developments

Consolidate access points within the site


Vehicular circulation shall establish a logical pattern that facilitates simple, direct and fully interconnected access to public streets.

Improve access to the site


Vehicular circulation shall establish a logical pattern that facilitates simple, direct and fully interconnected access to public streets.

Streetscaping Improvements Standard or Guideline Brief Description

Identify character of the area and improve area with variety of hardscaping and street furniture

Standard - Site Furnishings

Site furnishings and trash receptacles shall be dark in color and have a design that is in character with the intended qualities of the Design District.

Recommendations and Related Regulations - The planning team in conjunction with key stakeholders and town staff have identified the following improvements within the study area. A description of the proposed improvements are given followed by a brief description of the supporting standard or guideline in the Greater Downtown District Market Center.

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Community OutreachOn March 24, 2015 the planning team along with Town of Parker staff conducted a stakeholder meeting/workshop to discuss the future vision of the area. Two weeks prior to the workshop, town staff mailed postcards to stakeholders, encouraging their involvement in the process. The meeting was attended by six individuals, three of which were property owners and the others being business owners. Three other property owner who were not able to attend, sent their comments and concerns to town staff via email. Contact information for the individuals who attended, was also provided for future meetings on the topic.

This workshop provided stakeholders an opportunity to voice their opinions creating a sense of ownership during this process. The planning team facilitated discussion about existing conditions, streetscape and infrastructure improvements as well as possible funding, phasing and the creation of a special district.

An important aspect of this project as determined by town staff, was to ensure that this area had a distinct and unique feel that aligns with the towns vision. A preference survey which identified var-ious streetscaping furniture with three unique characteristics was provided as a way to establish a desired character for Parker Square. The consistent and uni-form streetscape elements allow for con-tinuity within the area and provides the visitor with a unique sense of place.

Rustic

Traditional

Modern

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Workshop +Preference survey

One of the most desirable features the community members wanted for Parker Square was a marquee sign on the corner of the intersection of East Hilltop Road and South Parker Drive as well as the entrances to Parker Square. The presence of a marquee sign will provide the area with more visibility as well as a sense of identity. These features will hopefully show patrons and developers that there is investment here and that Parker Square is worth visiting. The design team recommends a marquee sign on the corner of the intersection and business signs at the entrances to Parker Square.

Other streetscape features that the design team will propose for continuity and identity will be through native vegetation within the infrastructure as well as western/rustic themed street furniture. These elements will also contribute to the sense of place that is desired by the community and will be aesthetically pleasing to the visitors and foster a walkable environment. With these improvements, business owners will take more pride and ownership of the area and it will prove to investors and developers there are features that will supplement future development.

CHAPTER 3.0

Analysis

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Analysis

The planning team utilized a SWOT analysis as a way to analyze various factors relating to the area. A SWOT analysis is a structured planning method used to evaluate the strengths, weaknesses, opportunities and threats related to a project.

• Strengths: characteristics of Parker Square that give it an advantage over others.

• Weaknesses: characteristics that place Parker Square at a disadvantage relative to others.

• Opportunities: elements that Parker Square could exploit to its advantage.

• Threats: elements in the surrounding context that could cause trouble for Parker Square.

This analysis helped to inform the planing team during the creation of goals and objectives within the planning process.

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SWOT +Analysis Diagram

Strengths

Opportunities

Weaknesses

Threats

Development Opportunities - Existing pads ensure development can take place without removing existing structures. Local Business (Mix of uses) - Promoting local business will ensure that this district is unique and attractive to the community.Access - Access to SH 83 and Hilltop Road ensure easy access to high volumes of traffic.Scenic views - The grand views of the mountains instill a sense of the old west, contributing to the rustic character that is desired by the stakeholders. Topography - The topography of the site ensures that no big-box store will be developed here.

Condition of infrastructure - Existing infrastructure is outdated, contributing to hazardous conditions. Vacancy - Vacancy rates for developments affect surrounding land values and hamper development. Topography - In some areas the slope limits development and a sense of connection with surrounding uses. Parking - Excessive parking encourages auto-oriented development and uses.Limited vegetation - Vegetation on site is primarily limited to private developments and is not ideal for the climate. Uses and time - Operating hours of majority of uses within Parker Square are limited

Adjacent arterials - SH 83 and Hilltop Road can be barriers to accessing the site from opposing directions. Uses to the north - Undeveloped land directly to the north, including the substation, contribute to the disconnect to the area as a whole. High traffic speeds - High speeds along the adjacent arterials impact access.

Traffic volume along South Parker Drive and Hilltop Road - Both arterials have very high traffic volume, positively affecting land value and development opportunities. Visibility along arterials - Due to topography, high visibility along SH 83 benefits many developments within the site. Proximity to Mainstreet - Located less than one mile south of popular MainstreetProximity to housing - Surrounding residential subdivisions encourage mixed-uses that are pedestrian friendly. Proximity to future developments - Existing vacant land to the south ensure that this area will attract more users in the future.

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Analysis

An analysis of the site was completed by looking at the relation of five different elements of the site, those being: district, landmark, node, edge, path. This method is generally referred to a Lynchian Analysis and is prevalent in most site analysis and plans. The planning team also analyzed three other characteristics that were identified as being important factors for the redevelopment of Parker Square Road, these being: access, sidewalks and development opportunities.

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SWOT +Analysis DiagramDistrict - A specified area that exhibits a common character. The district in this case refers to the developments north of Solar Circle, east of South Parker Road, South of Hilltop Road and West of South Pine Drive. Landmark - Common reference points which can be used to explain specific locations. Parker Square has two landmarks those being the "Blue Roof Building" along the southwest corner of South Parker Road and Parker Square Drive, as well as the "Old Police Station" along Parker Square Drive, the focal point of the district. Both of these buildings were common reference points described by town staff, residents and business owners.

Node - Strategic points which a user can enter the district, commonly a junction of paths. In the case of Parker Town Square four nodes were identified and classified by the amount of traffic that can be accommodated.

Edge - Linear elements that can be identified as boundaries between two distinct uses or areas. The varying uses along with the physical form create a number of edges within the district. This is especially recognizable between the office uses along the southern edge of Parker Square Drive and the predominately mixed-use commercial to the north.

Path - The channel or means of traveling to the district and within. The district was development in a way that heavily focused on auto-oriented travel to and through although, there is one pedestrian only access connecting the district to the residential subdivision to the south.

Access - The planning team identified access is a important component for future development within the district. The team understood the difference between node and access in that access was identified as the points in which a user could enter a specific property within the district. Nodes were identified as access point to the district. Too many access points can be viewed as a hazard to pedestrians, such as the 14 access points identified along Parker Square Drive.

Sidewalks - Pedestrian infrastructure was identified by stakeholders as a key necessity to increase quality of the district. Existing sidewalks and gaps were identified and analyzed. While a majority of the district had sidewalks, the quality varried from one area to another. Widths were inconsistent, the condition in larger areas was poor and the large gaps limited pedestrian movement. Furthermore, there were no connections from one parcel to another ensuring that a user would most likely have to drive from one building to another.

Development Opportunities - These areas were identified as vacant parcels that have the greatest likelihood of being the first to develop once the plan is set in place. Areas were identified within and outside of the district. These developments will also be the ones that have the greatest influence on the future form of the area.

CHAPTER 4.0

Vision

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Vision

Embrace local business and create a destination for the community. A unique mixed-use, walkable environment will attract more users, increasing Parker Square’s economic and social value. The unique character identified by stakeholders will allow it to be distinguishable from the Town of Parker while fitting with the vision of the area. Through the creation of a robust public-private partnership, Parker Square will see new development, improved streetscaping, new public space, and improved safety within.

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Goals +Objectives

1. Promote local business.2. Identify the character and establish a sense of place for

Parker Square through urban design elements.3. Identify catalytic site(S) for development.4. Encourage and promote investment in the area through

public-private partnerships.5. Develop internal infrastructure that promotes walkability and

environmental sustainability.6. Develop internal infrastructure that promotes safety.7. Develop a compatible and comprehensive plan for land uses

that transitions to the surrounding context and fosters activity and vibrancy.

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Character

Marquee Sign

Welcome to

Parker Square

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SIGNAGE +CHARACTER

Vegetation Samples of suggested flowers and grasses which are appropriate for the Colorado Front Range climate.

Spotted GayfeatherGolden BannerRocky Mountain Bee Plant

Mountain Muhly Prairie Dropseed Switchgrass

Streetscape ElementsSamples of rustic streetcape elements to create the western character that the stakeholders seek.

CHAPTER 5.0

Recommendations

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Recommendations

DESCRIPTION OF USESThe current land use of the Parker Square development consists primarily of mixed-use retail and office. The planning

team sees this mixture of uses as consistent with the future development of the area and is in line with the existing regulations. East Parker Square Drive acts as a buffer between these two uses, with office space to the south and mixed-use retail to the north. This trend will continue through final build out.

When looking at potential future uses of the area, the planning team understood the importance of an appropriate tran-sition within the site and in regards to surrounding uses, specifically the residential development to the south. A key reason for maintaining the separation between office space and the mixed-use developments to the north, was related to this transition. In order to create an active area with uses operating on weekends and at night, the team thought it was necessary to create a buffer between the surrounding area, the existing office space provides that buffer.

The new uses are aimed at creating a walkable environment and provides for a variety of uses that complement each oth-er and support the existing needs of the community. A catalytic site that the planning team has identified is the existing police station along the south side of East Parker Square Drive. Currently vacant, the team has identified this building as a potential collaborative workspace for the nearly 500 existing home based businesses in the area. The new use would draw a new crowd into the site during different times of the day and could even house a coffee shop or small cafe.

Additionally, it was identified during the stakeholder meeting that this area is lacking a more upscale restaurant. The plan-ning team has identified the existing vacant parcel adjacent to the clinic as an appropriate place for this use. During the work-shop, the team proposed the development of a two-story building with a deck on top as a way to take advantage of the great views to the west. All of the stakeholders were supportive of this idea and thought it would be a great addition to the area.

The map on the following page identifies future developable areas and their respectable uses. These are only potential opportu-nities and the future development depends on a variety of factors including market conditions which are not discussed in this report.

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Recommendations

1-5 Years Infrastructure Improvements

The first phase would consist of reconstruction and improvements to existing infrastructure.

• Standardizing Parker Square Drive lane widths.

• Improve access to the site with a focus on promoting pedestrian safety.

• Constructing/improving 5’ detached sidewalks with a minimum 5’ lawn - similar to newer developments east of the study area.

• Develop stormwater management system focused on water quality.

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Recommendations

3-10 Years District Creation and Internal Infrastructure Improvements• Work with stakeholders to establish

a special district for the maintenance and creation of new amenities and to encourage a sense of ownership.

• Consolidate access points along Parker Square Drive.

• Develop internal vehicular and pedestrian connections between neighboring developments.

• Standardize drive lane widths.• Identify areas for active open space.• Connect Sun Way to Hilltop Road.

Support does exist for the creation of a district based on input from the workshop. The formation of a district is a regulated process with necessary steps yet, would not take a great deal of time to form. The reason for the extended period for this phase is due to the scope of projects identified especially those that take place on what is now private property. The purpose of this district is to build consensus for these types of projects and to identify possible funding sources.

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Recommendations

3-20 Years New Investment and Final Build out• Attract new businesses/users to

currently vacant buildings retail and office spaces.

• The former police station has been identified as a catalytic site - possible retrofit for a shared workspace or incubator as Parker is home to over 500 home based businesses.

• Attract new development on existing vacant pads.

• Establish new parcels from existing underutilized areas which were identified with Town of Parker staff.

• Attract develop for newly established parcels.

• Rehabilitate/reconstruct buildings reaching the end of their lifespan.

The most recent developments on site are a group of three office buildings along Solar Circle which were constructed in 2008. Two of these buildings as well as the former police station are currently unoccupied. Given that these new developments have remained vacant for approximately seven years, it is assumed that no new developments will occur within the very near future. Before new developments break ground, the existing vacant structures will find new uses or tenants. Once the investments are made and the identity is established, the site will become more desirable and development will follow. The first sites to be developed will be the currently vacant or under improved sites. This will be followed by the redevelopment of sites with buildings nearing their lifespan.

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Recommendations

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BEFORE

AFTER

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Recommendations

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BEFORE

AFTER

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Recommendations

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BEFORE

AFTER

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Implementation

To successfully implement the community’s detailed vision of Parker Square, a creative funding and phasing scheme will need to be adopted. The various infrastructure improvements along with fully developing a district character will require a collaborative partnership between the Town of Parker and key stakeholders. Creating a transparent partnership between the town and private developers will also help to ensure that the future build out follows the existing regulations and achieves the identified vision set forth.

The planning team, in conjunction with the Town of Parker Planning Staff have identified a robust funding strategy for the redevelopment of Parker Square. This strategy requires support from the community as well as consensus between the stakeholders.

The site is currently within the Parker Central Area Reinvestment Plan which was established in May, 2009. The reinvestment plan had been prepared by the Parker Authority for Reinvestment (PAR), the designated Urban Renewal Authority. The objective of the plan is to “…alleviate conditions of blight by actively promoting investment and reinvestment….” (Parker Central Area Reinvestment Plan). It has been identified that the goals stated in the reinvestment plan align with those established in the Market Center Design District Standards and Guidelines. Therefore, it is proposed that TIF funds through PAR should be used to construction the basic vehicular, pedestrian and stormwater infrastructure

within the site. Additionally, funds should be used to finance the streetscaping elements which are meant to create a sense a place with a unique feel. This investment will help draw new users and developments, effectively achieve the goals of PAR.

It is also recommended that a special district be created for the maintenance of the public areas within the site. During the community workshop, the stakeholders were excited about the idea of reinvestment and the majority of individuals were supportive of the idea to create a special district. Additionally, the idea of creating a pocket-park, developing internal pedestrian connections and consolidating access points along Parker Square Drive were also supported. Funds for these projects could come from PAR however, it is assumed that the district would have to take some responsibility as well.

Objective Funding

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COLORADO SPECIAL FINANCING DISTRICTSPrepared by Progressive Urban Management Associates (www.pumaworldhq.com)

Business Improvement Urban Renewal Special Improvement

District Authority District(BID) (URA) (SID)

Background/ Quasi-municipal organization Established to eliminate An assessment district

Summary is a subdivision of the state. All blighted areas for development is not a subdivision

property assessed in a BID must or redevelopment by of the state, nor is it

be commercial. Boundary may or purchasing, rehabilitating and separate from the

may not be contiguous. selling land for development. municipality.

Focus Management, Marketing, Advocacy, Real Estate Development, Capital Improvements,

Economic Development. (Can issue Rehab Financing, Infrastructure. Infrastructure.

bonds for capital improvements.)

Formation Approval by petition of property Finding of blight; Petition Need petitions from

Steps owners representing 50% by 25 electors; Council property owners who will

of acreage and 50% of value resolution. bear at least 50% of the

of proposed district; Council cost of the improvement;

ordinance; TABOR election. Ordinance forms district.

Assessment Assessment or mil levy on TIF on property and/or sales tax. Assessments on Property

Method commercial property.

Pros/Cons Very flexible entity that can Can generate sales and/or Equitable: only those who

finance improvements and provide tax increment to finance future benefit pay.

services. Can issue bonds. development. Difficult to form - requires

Increment needs approval from election. City constructs

county entities; can be improvements.

controversial.

Governance Minimum 5-member board appointed 5 to 11 member commission

by the Mayor or governing body; appointed by City Council. City Council

Can also be elected.

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Next Steps

The Parker Square Redevelopment Plan submitted by the planning team for the capstone project is the first step in realizing the future development of the area. Throughout the semester, the team has met with town staff to discuss the implications of this report and the future of Parker Square. After the conclusion of this semester, the planning team will submit a copy of this report and all related files to town staff for their review. This report may also be provided to any stakeholder that is interested in the pos-sible direction of the area.

While the planning team will not have any impact on the area after the submission, the team has identified a number of key steps for the successful implementation of the redevelopment plan.

1. The town will need to continue to communicate with the stakeholders. There have been workshops in the past dealing with many of the same issues however, due to other more pressing issues, this project was put on hold. The planning team has identified this area as necessary for improvements in order to help support the wellbeing of the town. Therefore, it is crucial that communication continue and future meetings be set up.

2. There needs to be a discussion with PAR in terms of financing for Phase 1 infrastructure development. What can be fi-nanced, how much will the project cost and what is the timeframe

3. the stakeholder leaders need to be identified and be given the responsibility to maintain a relationship with other property or business owners in order to build consensus for future projects as a foundation for the future development of a special district.

4. More in-depth market studies and related analysis need to be done to determine the feasibility of the proposed develop-ments.

Over the course of the last 16-weeks, the planning team has identified the existing conditions, reviewed all relevant regulations and brought ideas to stakeholders during the workshop. Future steps depend on solidify relationships and conducting external analysis.

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PARKER SQUARE REDEVELOPMENT PLAN

parker square redevelopment plan

Documents