HomeMy WebLinkAboutCity Council Packet 01-26-2021 SpecialCity Council 1 of 1 January 26, 2021
CITY OF PLYMOUTH
AGENDA
Special City Council
January 26, 2021, 5:30 PM
1.CALL TO ORDER
1.1 Instructions to participate in the Virtual Council Meeting
2.TOPICS
2.1 City Center 2.0
Study
2.2 Set future Study Sessions
February
March
April
May
June
3.ADJOURN
1
Special City
Council
January 26, 2021
Agenda
Number:1.1
To:Dave Callister, City Manager
Prepared by:Sandy Engdahl, City Clerk
Reviewed by:Laurie Hokkanen, Administrative Services Director
Item:Instructions to participate in the Virtual Council Meeting
1.Action Requested:
The Mayor provides instructions for the public to observe the meeting by phone or online.
2.Background:
Council meetings will be conducted virtually (via Zoom webinar/conference call) due to the state of
local emergency for the COVID 19 pandemic.
To observe/listen to the meeting, please register in advance at:
https://us02web.zoom.us/webinar/register/WN_gMrZqbJjSbeqRNcW4TUOLA
No public comments are taken at study sessions. Comments can be emailed to the Mayor and City
Council at council@plymouthmn.gov or to the City Manager at dcallister@plymouthmn.gov.
Contact City Clerk Sandy Engdahl at sengdahl@plymouthmn.gov with additional questions.
3.Budget Impact:
N/A
4.Attachments:
2
Special City
Council
January 26, 2021
Agenda
Number:2.1
To:Dave Callister, City Manager
Prepared by:Danette Parr, Economic Development Manager
Reviewed by:Laurie Hokkanen, Administrative Services Director
Item:City Center 2.0
1.Action Requested:
Review and discuss City Center 2.0 Study and Recommendations.
2.Background:
Over the course of the last year, the City has been working with outside consultants to begin the
process of developing a renewed vision for City Center. Ultimately, the new vision is to facilitate
public-private partnerships that will allow for new opportunities to attract people to City Center for
expanded living, commerce, and entertainment. Since the August visioning workshop, where
feedback was received in relation to initial findings and potential recommendation areas, an
additional online online survey was conducted to gather stakeholder feedback. In response to the
collective feedback from Council, citizens, property owners, business owners and other
stakeholders, the consultants with GRAEF and Zan Associates have concluded their study and
provided recommendations. The City Center Study and Recommendations are attached and will be
presented as a part of the January 26 Regular Council meeting. However, in acknowledgement that
this is not the conclusion of the process, but rather the beginning, staff desires to discuss the
following areas as a part of January 26 special session:
1) An update since the visioning workshop.
2) Share information related to future roadway projects or other aspects around City Center that
could benefit from collective timing with potential future changes in City Center, such as the
following:
- Vicksburg reclaim project scheduled for 2022
- City Center pavement/street lighting project anticipated for 2024
- MnDOT’s Hwy 55 Improvements scheduled for 2024 (proposed Council special session this
summer)
- BRT Station Area Planning micro-study (proposed Council special session this summer)
- Highway 55 All Day Service (Regional Solicitation funded this round for 2023/24)
3) Council direction in relation to the recommendations and next steps, such as the following: (it’s
anticipated that much of this may also take place as a part of the full Council meeting discussion):
- Does the Council generally support the recommendations in the study (if only some, which ones?)
- To what level does the Council support increased housing height/density within City Center?
3
- Does the Council support further exploration of increased infill development on City owned
property within City Center?
- Does the Council support looking closer at parking and considering structured parking as a part of
redevelopment efforts?
- Are there additional things the Council would like to see as a part of future discussions that have
not been included as a part of the recommendations?
Depending on the direction provided by Council, next steps may involve further analysis in relation
to potential zoning flexibilities, design guidelines, parking, roadway/sidewalk alignments,
amenities, redevelopment incentives, and other areas the Council may want to further pursue. If
Council can reach consensus on next steps and allow staff to move forward with recommendations,
staff would like to further engage in discussions with developers to allow for additional feedback in
relation to potential changes and understand anticipated shifts in the market place, as well as start
to build anticipation in the development community for a renewed City Center.
3.Budget Impact:
None at this time, but to be determined as direction is provided and further analysis required.
4.Attachments:
Study
4
Plymouth City Center 2.0
a new community vision
01/26/2021 FINAL DRAFT
5
2Plymouth City Center 2.0 a new community vision
Acknowledgments
City of Plymouth
Hennepin County
Consultant Team
GRAEF: Prime consultant and planning team
Zan Associates: Public engagement
BDI, Inc.: Market analysis
CDG: Bicycle and pedestrian connectivity assistance
Hennepin County provided assistance to the project
through a grant from the Community Works program
01/26/2021 FINAL DRAFT 6
3Plymouth City Center 2.0 a new community vision
Contents
1. Introduction ..................................................................................................4
2. What We Heard ............................................................................................8
3. Market Direction ........................................................................................16
4. Analysis of Primary Neighborhood Elements ......................................24
Making a Neighborhood ...........................................................................................................25
Making a Place ...........................................................................................................................26
Making Connections .................................................................................................................28
5. The Vision ...................................................................................................32
6. Opportunity Areas .....................................................................................34
7. Action Plan Framework ............................................................................48
Appendix
A: Interim Market Report
B: Community Engagement Reports
01/26/2021 FINAL DRAFT 7
4Plymouth City Center 2.0 a new community vision
1. Introduction
Background of City Center.
In 2019, the Plymouth City Council initiated
a visioning process to explore options for
continued development and redevelopment of
Plymouth’s City Center. City Center is located
one mile west of Interstate 494 on Minnesota
state highway 55 (MN 55). The existing
boundaries are shown on the map to the right.
First introduced in 1996, City Center includes
a mix of uses: office, medical, retail, restaurant,
park, and governmental.
As with most development in the late 1990s,
City Center is predominantly auto-oriented,
lacking key pedestrian infrastructure that
would help cultivate the “place-making”
typically desired for city centers. Today, while
most of City Center is developed, the uses
lack a cohesive feel. While the impact of the
Covid-19 pandemic undoubtedly altered the
market landscape, any difficulties retailers
were already experiencing have grown
exponentially, making the need to reimagine
City Center even more urgent.
Why City Center 2.0 Was Needed.
City Center is halfway through its third decade
in existence and is in need of a renewed vision
for how it can best meet the needs of the
Plymouth community. This study, Plymouth
City Center 2.0, is intended to provide a
roadmap for how to attract new investment to
City Center, create an enhanced sense of place,
and cultivate a financially successful, visually Figure 1. Existing City Center boundary at start of City Center 2.0 project
City Center
Boundary
Rockf
or
d
R
d
MN
5
5Vicksburg LnPlymou
th Blvd
Hilde
Performance
Center
01/26/2021 FINAL DRAFT 8
5Plymouth City Center 2.0 a new community vision
appealing mixed-use suburban development.
From market and zoning analyses to wayfinding
and landscaping, the recommendations in this
study will help nurture an attractive residential
and business environment in the heart of
Plymouth that will serve the needs of the
community, create a regional destination, and
foster civic pride.
Major opportunities exist for City Center
2.0, including creating a central plaza space,
encouraging a restaurant cluster with outdoor
seating areas, and developing a mixed-use
corridor for residential and business uses.
Importantly, the vision for a new City Center
involves the design of multi-modal streets that
accommodate all modes of transportation (not
just automobiles). Cultivating a pedestrian-
oriented environment will help support
the “downtown feel” that is so desired by
community residents, as well as contribute to
the success of restaurants and retailers in City
Center. Ultimately, a successful City Center 2.0
requires ensuring that the needs and desires of
the community harmonize with the realities of
the market, and that the vision for development
possibilities aligns with the local ordinances,
policies, and larger vision for the community.
This study presents a roadmap for achieving a
successful City Center 2.0.
How To Use This Document.
The first part of this study includes the
ingredients of analysis (Chapters 2-4), and the
end of the study describes the product of that
analysis (Chapters 5-7).
Chapter 2 describes the processes for
community engagement and covers particular
desires that stakeholders expressed for a
renewed City Center. While Covid-19 altered
the methods for community engagement (as
gatherings and physical interaction was not a
possibility), the value of that engagement was
not lessened.
Chapter 3 provides an analysis of existing
market trends and opportunities that helped
determined the feasibility of the vision. This
section includes both an interim market report
(conducted before the Covid-19 pandemic) and
a final market report (conducted in the midst
of the pandemic). Together, these reports help
provide an understanding of present and future
trends that should guide the development
vision for City Center 2.0.
Chapter 4 describes best practices for
creating neighborhoods and cultivating a
sense of place. These best practices served to
guide the urban design for opportunity areas
within the renewed City Center to cultivate a
“downtown” feel – a common desire expressed
by the community and stakeholders.
Chapters 5 and 6 begin to showcase the vision
for City Center 2.0, which was informed by
the ingredients of the previous sections. This
vision, contained in Chapter 5, is focused on
three main elements: creating a framework
for the redevelopment of parcels in the City
Center; improving the connectivity within
the City Center; and, cultivating a central
place for community gathering and events.
Chapter 6 describes three opportunity areas
for the redevelopment of the Civic Center:
the central gathering place (“downtown”); a
restaurant cluster; and, a mixed-use corridor
for residential and business development.
The last chapter includes an action plan
framework for implementing the vision for
City Center 2.0. Actions steps are focused
on ensuring consistent policy for the City,
updating zoning and subdivision ordinances,
developing multi-modal streets within the
City Center, and advancing redevelopment for
opportunity sites.
Figure 2. A landmark destination, the Hilde Performance Center lies
just east of Plymouth Boulevard within the City Center
boundary. Physically located at a lower elevation, the
amphitheater itself is not visible from the commercial
areas of City Center. One of its entrances is visible along
Plymouth Boulevard at 35th Avenue North.
01/26/2021 FINAL DRAFT 9
6Plymouth City Center 2.0 a new community vision
Figure 3. Areas of consideration (shown in blue) to be incorporated into the City Center boundary during City Center 2.0 project
WEST
SOUTH
Existing City Center
boundary, shown dashed
Areas for consideration to
be added to City Center,
shown shaded blue
The Process for the Project.
A broad range of critical elements were
reviewed and analyzed in the development of
the vision for City Center 2.0. A summary of
these elements is below.
From the market and development side:
»Current position in the market.
»Near term opportunities.
»Barriers or obstacles to development
and new investment (internal within
government and external within the
market).
From the community side:
»Engage businesses, property owners,
residents and users of City Center.
»Identify quality of life issues to serve
as recommendations within the City
Center 2.0 study.
From the planning and policy side:
»Updates to policies, regulations and/
or processes to attract and retain the
types of development that fit the City
Center 2.0 vision.
»Outline action steps to implementation.
Rockf
or
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R
d
MN
5
5Vicksburg LnPlymou
th Blvd
The Boundary Analysis.
Defining City Center’s boundaries has been
important to Plymouth officials throughout this
study process. Traditionally, any commercial
district is defined as that part, or area, of
any community where the land uses include
multiple commercial activities, such as retail
or office. The study area’s location off MN 55 is
proximate to other commercial uses, as well as
light industrial. Two key areas were evaluated
for possible incorporation, labeled and shaded
01/26/2021 FINAL DRAFT 10
7Plymouth City Center 2.0 a new community vision
Figure 4. Recommended City Center boundary, and the City Center 2.0 study area.
Rockf
or
d
R
d
MN
5
5Vicksburg LnPlymou
th Blvd
City Center 2.0 Study Area
Boundary, shown dashed
in blue on the previous figure as “West” (Lunds
and Byerlys and its surrounding area) and
“South” (Fresh Thyme and Goodwill south of
MN 55).
What comprises City Center’s boundaries has
two aspects—what is perceived locally, and
what is logical. Outreach conducted during
this study indicates that few participants
understand where City Center is located, while
Lunds & Byerlys is often identified in tandem
with City Center’s businesses. Logically,
the proposed City Center interventions, or
redevelopment scenarios, will have a more
direct impact on and near the Lunds & Byerlys
area. Also, those commercial uses located south
of MN 55 generally differ from the community-
oriented uses north of MN 55. Finally, City
Center’s future growth per this study requires
focused management, whether by City staff
or in the future, by some district management
organization. For management, the inclusion
of the Lunds & Byerlys area within City Center
enables redevelopment and future transit-
related decisions that affect the Plymouth’s
central place.
The diagram to the right illustrates the
recommended City Center boundary, and
comprises the study area used through this
document.
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8Plymouth City Center 2.0 a new community vision
2. What We Heard
Overview
The planning process for Plymouth City Center 2.0 began early 2020 and
included a wide variety of in-person and online engagement techniques.
As community engagement for Civic Center 2.0 began, so did the impact
of the Covid-19 pandemic on our daily living patterns, requiring that we
minimize social congregation and limit physical interaction. While the
Covid-19 pandemic fundamentally altered the nature of community
engagement by increasing the reliance on digital engagement techniques,
the value of that engagement was not compromised. In fact, many of
the online tools that were deployed to collect community feedback
01/26/2021 FINAL DRAFT 12
9Plymouth City Center 2.0 a new community vision
Phase 1 Engagement
Community engagement during Phase 1 of the planning effort, which
occurred March-August 2020, focused on seeking input from people
about how they currently use Plymouth City Center, what their concerns
are about existing conditions, what their vision is for a future City Center,
and what things should be considered when designing or implementing
housing in City Center.
In general, people expressed concern about the quality and safety of
walking and bicycling in City Center, had a number of questions about
housing, and expressed a vision of City Center as a walkable gathering
place for families with green public spaces and opportunities for eating
and entertainment. The results of the Phase 1 engagement informed the
market study, the analysis of existing conditions, and the development
of planning options. Details about Phase 1 engagement can be found in
Appendix B.
Why people use City Center now:
What people say will be important in two years:
generated significantly more discussion than what is typically achieved
via in-person methods. For many, especially those with demanding
schedules or family constraints, online engagement is easier to access
and requires significantly less time to become informed and voice one’s
opinion. As a result, over 2,400 people made their voices heard through
the community engagement outreach.
Public engagement activities included an interactive website, two online
surveys, a FlashVote, a virtual workshop with Council Members and
key stakeholders, and in-person and telephone interviews with Council
Members, property owners, business owners and developers. Details for
each activity are summarized below and on the pages that follow.
01/26/2021 FINAL DRAFT 13
10Plymouth City Center 2.0 a new community vision
How people describe their vision for city center:
Housing Considerations:
01/26/2021 FINAL DRAFT 14
11Plymouth City Center 2.0 a new community vision
Community Quotes:
01/26/2021 FINAL DRAFT 15
12Plymouth City Center 2.0 a new community vision
Community engagement during Phase II of the planning effort, which
occurred August-October 2020, focused on seeking input from people on
various options for a future Plymouth City Center. Phase II engagement
had two primary components: a virtual Visioning Workshop with City
Council members, key stakeholders, and city management; and a second
round of online engagement including an online visual preference survey.
Over 640 people responded to the visual preference survey, providing
over 1500 comments in addition to answering the survey questions. In
general:
»The majority of people liked all examples of gathering places and
outdoor dining examples.
»Most people liked mixed used multifamily housing and townhomes
(2-5 stories in height) and did not like the idea of high-rise apartments
or condos (6 stories or more).
»Most people liked the idea of mixed-use trails, cycle tracks and
intersection improvements for bicyclists and did not like the idea of
unprotected bike lanes on streets. They were split on liking/disliking
protected on-street bike lanes.
»Most people liked the idea of mixed-use trails, walking paths,
sidewalks with planted boulevards and intersection improvements
for pedestrians. They were split on liking/disliking sidewalks without
planted boulevards.
The results of the visual preference survey are shown to the right an on
the following page. There results are very consistent with discussion
at the Visioning Workshop. Details about Phase II engagement can be
found in Appendix B.
Phase 2 Engagement Gathering Spaces:
Cont emporary
Park
Playful public
art
Dest ination
marketplace
Stor y hour
Universal
access
Movie night at
public plaza
72.5%
14.7%
12.8%
64.9%
19.2%
15.9%
78%
12.3%
9.7%
48.7%
22%
29%
76%
7%
16.5%
66%
16%
18.7%
Like Dislike Don’t know
01/26/2021 FINAL DRAFT 16
13Plymouth City Center 2.0 a new community vision
Outdoor Dining:Multifamily Housing:
Like Dislike Don’t know Like Dislike Don’t know
Food
even
Rest
window
Fl ex
parking fo
tru cks
Outdoo r
cafe
service
Food in the
park
cafes
71%
16%
13%
88%
7%
5%
65%
18%
16%
80%
10%
10%
66%
13%
21%
High-rise
apartment/condo
Mixed Use:
Lo w-rise
apartment/condo
Town homes
10%
83%
7%
43%
39%
18%
73%
20%
7%
59%
29%
12%
apartment/condo
Food
01/26/2021 FINAL DRAFT 17
14Plymouth City Center 2.0 a new community vision
Walking paths
Mixed use
trails
Sidewalks with
planted
Sidewalks with
no boule vards
Intersection
improvements
for walkers
Mixed use
trails
Prot ected bike
lanes (optio
Prot ected bike
lanes (optio
Cycle tr acks
Unprotected
bike lanes
Inters ection
improvements
Like Dislike Don’t know Like Dislike Don’t know
89%
8%
3%
46%
35%
19%
46%
35%
19%
81%
11%
8%
14%
69%
17%
74%
11%
15%
98%
.5%
1.5%
79%
15%
6%
86%
6%
8%
42%
32%
26%
90%
3%
7%
Bicycle Improvements:Pedestrian Improvements:
01/26/2021 FINAL DRAFT 18
15Plymouth City Center 2.0 a new community vision
Community Gathering Places/Vision for City Center
Overall, survey respondents were very supportive of adding community
gathering places to Plymouth City Center and see gathering places as a
focal point for a future vision for City Center. Respondents described
their preferences as:
»Attractive areas that are charming, family-friendly, dog-friendly,
timeless, and have character, attractive architecture, and a small-town
feel
»Spaces that are activated with recreation and entertainment activities
»Green spaces and pedestrian amenities
»Public areas that are walkable with easy access
»Enough parking but in structures rather than surface lots
Bicycling Connections
There is broad support for improved bicycling facilities in City Center, in
the city overall, and for better biking connections between City Center
and nearby trails and neighborhoods. Many people supported bicycle
trails, cycle tracks and protected bike lanes. However, most people did
not support unprotected bike lanes, and many expressed concern about
using street space for any bike lanes. While there was some support
for multi-use trails, people felt pedestrians and bicyclists should be
separated. Many people expressed a need for a safe bicycle crossing of
MN 55.
Pedestrian Connections
There is a general recognition that there are pedestrian safety needs in
the City Center area and that the area should become a more pleasant and
safer place to walk. In particular, people indicated a need for improved
crossings at intersections, a safe pedestrian crossing at MN 55, better
connections to/from City Center, and a more pedestrian-friendly design
overall.
Restaurants and Outdoor Dining Spaces
A desire for more affordable, local, family-friendly restaurants that are
not chains or fast-food restaurants was by far the most frequent comment
received. Many people mentioned that they have to leave Plymouth for
the type of dining and entertainment they want. Many people expressed
a desire to be able to stay in Plymouth for these activities and see City
Center as an opportunity for that to happen.
Multifamily Housing
There is a general recognition that additional housing would be
acceptable in the City Center area. However, there were some people
who stated that no additional housing should be provided in Plymouth,
including in City Center. These concerns were often associated with
concerns about school crowding, increased traffic, loss of green space,
and tax burden. The most frequent comments about specific types of
housing in City Center included:
»High-rise housing (6 stories or more) is not seen as appropriate for
Plymouth or City Center.
»A greater variety of housing opportunities is needed that are affordable
for seniors and young families.
»There is a preference for walkable mixed use with green space and
underground parking.
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16Plymouth City Center 2.0 a new community vision
3. Market Direction
Overview
This Final Market Report links City Center’s
market fundamentals, as described in the
Interim Market Report (see Appendix A), with
local outreach, accelerating market trends,
and this study’s site redevelopment scenarios.
The resulting market framework establishes
the market context for capitalizing on City
Center’s best opportunities and achieving the
City Center 2.0 study vision over time.
Plymouth’s City Center has strong market
characteristics, and for the future, the City of
Plymouth and City Center are part of a growing
region known for its great quality of life and
considered one of the top national locations
for Millennials to live and work.1 These many
market strengths mean that a great City
Center, functioning as Plymouth’s community
core, can evolve as a place where interesting
and exciting activities attract both residents
and visitors and that Plymouth residents
identify as their own. Ultimately, growing City
Center’s markets will require a local willingness
to embrace creative solutions to realize City
Center’s true potential in implementing this
study’s recommendations.
1 https://www.bizjournals.com/twincities/
news/2020/10/12/minneapolis-among-top-cities-for-
millennials.html
The Interim Market Report identified five (5)
market-based opportunities for City Center,
including:
1. Housing;
2. Physical improvements that provide
great experiences for City Center users
and support local business success;
3. Collaborating with existing City Center
property owners to improve their
properties to enable business growth;
4. Additional food and beverage, or
restaurant, options;
5. Retaining the City Center’s character
as a critical component of future
redevelopment.
Capitalizing on these market-based
opportunities also means recognizing that
the ongoing worldwide pandemic has altered
consumer behaviors, investor thinking,
and market trends affecting all uses and all
communities. For City Center and Plymouth,
these key market shifts will affect how this
study’s recommendations are implemented,
particularly over the next five (5) years. New
and flexible approaches to implementation, as
described throughout this study, will ensure
that this City Center vision becomes reality.
Market Updates: City Center’s Uses
and Opportunities
The Interim Market Report (see Appendix
A) defined broader market trends, such as
purchasing technologies, with implications
for City Center’s future. These same pre-
pandemic market trends have either
accelerated or shifted, with long-term
implications for commercial uses and
tenancies in all commercial locales, including
City Center. Emerging Trends in Real Estate
2021, recently published by the Urban
Land Institute (ULI) and Price Waterhouse
Coopers (PWC), notes that the impact of the
pandemic may potentially affect real estate
and all commercial uses for decades. Suburban
communities, like Plymouth, may benefit from
a decreased appeal of urban centers for the
next five (5) years, as these urban areas re-
emphasize their livability and amenities. The
attraction power of suburbs with character
and strong amenities, including unique small
businesses, can also strengthen City Center’s
overall experience within a growing, family
friendly community. 2
The following updates are described by sector.
Local and national data is provided for the
retail, restaurant, and housing sectors, given
City Center’s identified opportunities.
2 Both suburban trends are detailed in ULI and PWC’s
Emerging Trends in Real Estate 2021.
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17Plymouth City Center 2.0 a new community vision
Retail
Overall, the retail sector (excluding
restaurants described below) was struggling
pre-pandemic. The national problem of too
much retail square footage per capita has
been well publicized for at least a decade. The
advent of online purchasing has resulted in a
decreasing need for selling space by retailers
of all types. At the same time, consumer
preferences have changed, with consumers
allocating more of their disposable income
to entertainment, recreation, travel, and
housing. This weaker demand for traditional
retail goods has also contributed to overall
sector declines. These specific changes are also
evident in the repositioning of shopping malls
from exclusively retail centers to residential
neighborhoods, healthcare facilities, and
e-commerce fulfillments centers.
While certain retailers, such as grocers and
home services, have performed well in 2020,
other retailer categories are stressed. Apparel
is one example. Retail sales continue to migrate
to online channels. According to a recent
survey, shown in the figure on this page, over
60% of consumers anticipate spending more
online post-pandemic.
State-mandated closings have placed many
small retailers in jeopardy. Small retailers, some
hesitant to adapt to online sales, had to quickly
develop online and social media sales platforms
to survive. These same smaller, independent
retail businesses rarely have the same levels of
cash reserves and access to financing as larger
retailers. Many were also unable to access
federal pandemic aid programs. Though retail
sales increased in mid-summer, the question of
when most customers will feel safe enough to
return to physical stores remains. According to
the ULI report cited above, an estimated 20%
failure rate for small retailers would result
in 1 billion square feet of vacant retail space
nationally.
Figure 5. Consumers and Digital Transformation. Source: Digital Commerce 360.
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18Plymouth City Center 2.0 a new community vision
In the short-term, those small retailers that
Plymouth residents desire for City Center
and that could consider a City Center location
are focused on survival. The broader sector
shifts indicate that greater numbers of future
ground level tenants will not be retailers in
the traditional sense of selling goods. There
are three (3) positive aspects of these market
shifts:
1. Retailers and retail property owners
continue to readily adapt to market
challenges. Whether it is a new use
for former retail space, shared lease
space with multiple retail tenants, or
seasonal tenancies, emerging occupancy
formats are the positive result. City
Center, as Plymouth’s central place, can
accommodate unique retail, assuming that
local regulations are sufficiently flexible to
enable emerging business formats.
2. The interest in shopping locally and
supporting local small businesses has
strengthened. City Center’s mix includes
multiple retailers with important
connections to Plymouth and to the Twin
Cities area. Examples of these locally
owned businesses include Foursome
Fine Men’s Wear, Letterman Sports,
Von Hanson’s Meats, and India Bazaar.
Fostering affinity with existing City Center
businesses (and City Center’s future small
businesses) among area customers will
remain important as implementation of
this study’s place making occurs.
3. A recent national small business survey
by Main Street America3 indicates the
pandemic’s challenges have prompted
greater collaborations among small
business owners in established commercial
districts nationally. Providing continued
City support for these collaborations
geared to generating revenues and
visibility for City Center is another way of
creating excitement about City Center to
its core customers.
Restaurant
The restaurant industry faces some of the
most visible and highly publicized challenges
in the current market environment. Nationally,
about 70% of restaurants in all formats
are independently owned. Based upon the
responses in study outreach, Plymouth
residents want an expanded food and beverage
offering in City Center, encompassing varied
formats from fine dining to brew pubs to world
cuisine.
According to the National Restaurant
Association (NRA), one (1) in six (6) U. S.
restaurants have closed permanently. Based
upon October 2020 data from the U. S. Census
Bureau, the shortfall in restaurant and food
service revenues since February 2020 is
estimated at $200 billion.4 The NRA estimates
3 https://www.mainstreet.org/howwecanhelp/
resourcecenter/mainstreetforward/research
4 The U. S. Census Bureau category, Eating and Drinking
Places, is the accepted sales measurement for the restaurant
and food service industry. Similar data is noted in this Wall
Street Journal article: https://www.wsj.com/articles/mcdonalds-
$240 billion for 2020. Total industry revenues
(see figure, following page) remain well below
YE 2019 revenues. Minnesota, according to
NRA data, ranks fifth in restaurant job losses,
having lost 30,000 restaurant jobs since
February (see figure, following page). Industry
leaders also continue to advocate strongly
for increased federal pandemic assistance
to specifically aid independent restaurant
operators.
Restaurant unit operating costs have
dramatically increased, given state-mandated
closures, indoor dining capacity limits, the
costs associated with developing new sales
channels (such as carry-out or delivery),
and increased cleaning and employee safety
equipment and procedures. Pre-pandemic,
the average restaurant profit margin was
about 5%.5 Revenues from limited contact
sales and reduced indoor seating are often
insufficient to cover operating expenses. For
many restaurants, outdoor dining has helped
generate some sales, but not all restaurants
have been able to either accommodate
outdoor dining or have access to outdoor space
that adequately serves enough customers.
Modifications of local liquor laws, permitting
sales of wine, beer, and cocktails via delivery or
curbside pick-up, have also helped to generate
some restaurant revenues.
Despite the real challenges, there are multiple
chipotle-and-dominos-are-feasting-during-coronavirus-while-
your-neighborhood-restaurant-fasts-11602302431
5 https://www.bizjournals.com/twincities/
news/2020/07/16/the-hunger-games.html
01/26/2021 FINAL DRAFT 22
19Plymouth City Center 2.0 a new community vision
Figure 6. Restaurant Industry Revenues
Figure 7. Minnesota Restaurant Jobs.
creative adaptations occurring in major
restaurant markets, including the Twin Cities.
Technology has been crucial to cost control
in food and beverage operations. Improved
customer facing technology has also been an
important industry trend for the last five (5)
years, but the need for no-touch interactions
with patrons has accelerated this trend.
Food and beverage businesses in all formats
have pivoted in how they serve customers.
Many restaurants, throughout the pandemic
period, have become community kitchens,
producing meals for distribution by non-
Minnesota Eating and Drinking Employment Trend 2020
Feb-20 Mar-20 Apr-20 May-20 Jun-20 Jul-20 Aug-20 Sep-20
Feb-Sep Job
# Change
Feb-Sep Job
% Change
192,400 186,500 90,500 110,500 145,600 157,800 165,800 162,500 -29,900 -15.50%
Sources: https://www.restaurant.org/downloads/pdfs/research/state-employment-trends-september-2020.pdf; BDI.
profits and charities. Other examples include:
offering multi-course carryout; changed menu
offerings; meal and drink kits; food sales
supporting the restaurant (and often aiding
their purveyors); rooftop igloo dining; and
carhop curbside service. New restaurants,
including fine dining, are also opening, despite
current uncertainties.6 Interesting approaches
locally include:
6 Chicago’s Ever restaurant is a prominent example. In
Minneapolis, Petite Leon recently opened with limited staff to
serve customers through multiple channels.
1. Kenwood Food & Beverage. This
partnership between the Double Black
Diamond restaurant group and national
supplier, U. S. Foods, is starting a ‘virtual
food hall’ out of a Minneapolis ghost
kitchen. Offerings from Black Diamond’s
Red Cow restaurants and three (3) new
concepts will be available for delivery only.
A closed Red Cow unit serves as the ghost
kitchen. (A ghost kitchen is a professional
kitchen facility used to prepare and cook
meals for delivery only.) Ultimately, this
ghost kitchen will function as an incubator
for the restaurant group to develop future
new restaurant concepts. 7
2. Bellecour Bakery. After closing his
downtown Wayzata restaurant (Bellecour)
for pandemic-related reasons, chef Gavin
Kaysen partnered with Cooks of Crocus
Hill, area cooking school and cookware
retailer, to sell pastries through their retail
stores.
3. Lake City Sandwiches. The owners of
Nightingale Restaurant in Minneapolis
had developed the concept for Lake
City—a sandwich shop using ingredients
provided by their local suppliers—but
had not identified a location. To bolster
Nightingale’s potential revenues given
permitted dining room capacity and
colder weather, Lake City has opened as
a separate restaurant within Nightingale
offering pick-up and delivery only.
7 Dylan Thomas, “Red Cow Founder Teams with U. S.
Foods,” MSP Business Journal, September 24, 2020.
01/26/2021 FINAL DRAFT 23
20Plymouth City Center 2.0 a new community vision
Some of these altered ways of doing business,
including certain safety protocols, will remain
part of restaurant operations, post-pandemic.
For City Center, considering what actions and
regulations will foster independently owned
restaurant tenancies, whether as part of
this study’s outdoor food hall scenario or at
stand-alone locations. Accommodating new
restaurants will require an openness to varied
options for consumer purchasing, including
walk-up windows, outdoor dining, and the
related adjustments to parking requirements
for delivery services and curbside customer
pick-up.
Office
Stay-at-home orders served as the most recent
sector disrupter for the office market, forcing
work from home (WFH) for office workers.
The unknown is how WFH will affect the office
sector over the long-term. For now, building
owners are increasing health precautions, and
employers continue to evaluate how, when,
and where to ask workers to return. Data and
employer experiences vary on the success of
WFH and its impact on overall productivity.
Also, co-working space is expected to rebound,
despite health concerns, with its emphasis on
short-term leases and start-up firms.
As described in the Interim Market Analysis,
office uses represent about 1/3 of City Center’s
overall business mix. Healthcare uses, including
medical and dental practices, dominate this
component of the mix. Many of these practices
have re-opened, with additional health/safety
protocols for patients and employees and
options for virtual visits. These healthcare-
related office uses remain positioned for solid
growth post-pandemic.8 For City Center,
office uses are not the priority redevelopment
opportunity, but office (and nearby) employees
and their visitors will remain important
customers for study area businesses.
Entrepreneurship
Collaborating with existing City Center
property owners to both improve their
properties and to support business growth is
one of City Center’s market opportunities. The
underlying objective in this collaboration is to
ensure location options for entrepreneurial
small businesses of all types. Within the next 5
years, a surge of entrepreneurship is projected
to occur in downtowns and areas similar to City
Center.9 These entrepreneurs are expected
to include those new and emerging uses that
Plymouth residents hope to support.
These newer small businesses are less likely
to occupy newly constructed ground level
lease space, given the rent cost per square
foot (PSF). As noted in the Interim Market
Report, new lease space typically rents for
$30 PSF with vintage space at about $15
PSF. For City Center’s tenancies, developing
8 ULI and PWC’s Emerging Trends in Real Estate 2021,
p.70
9 ‘Global Trends Affecting North American Downtowns’
presented by the Chicago Loop Alliance on September 17, 2020.
This session examined the trends and economic opportunities
specific to downtowns of all sizes and their likely post-COVID
impacts.
a support system for these small businesses
is described in the following framework. This
study’s outdoor food hall concept is one aspect
of entrepreneurial growth in City Center. The
long-term tangible benefit of this collaboration
is its contribution to place making by attracting
businesses that also attract more City Center
users and stronger local affinity for City Center.
Residential
Housing was identified as best opportunity
for City Center’s future redevelopment, most
likely as multi-family housing. Nationally,
multi-family housing development continues
to be financed, and despite initial concerns,
rent collections have averaged 95% or
greater. Twin Cities’ developers remain
interested in City Center sites. Multi-family
development has served as the region’s real
estate development driver over the last five
(5) years, as it has in many major markets
nationally. Regionally, the pandemic has not
slowed multi-family project starts, with 2020
starts exceeded only by 2019.10 Though multi-
family has been constructed in both cities and
the suburbs in the Twin Cities, the majority of
the projects proposed over the next two (2)
years are expected to be suburban multi-family
developments. 11
For potential City Center projects, unit sizes,
10 https://www.bizjournals.com/twincities/
news/2020/11/05/twin-cities-apartment-construction-keeps-
booming.html
11 https://www.bizjournals.com/twincities/
news/2020/08/19/real-estate-experts-predict-apartment-
slowdown.html
01/26/2021 FINAL DRAFT 24
21Plymouth City Center 2.0 a new community vision
Figure 8. City Center 2.0 Planning Boundary
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City Center 2.0 Study Area
Boundary, shown dashed
depending upon tenant WFH needs, and
amenities may vary, given perceived health-
related concerns. Purchasers for any future
condominium projects will likely have similar
concerns. An advantage for any City Center
redevelopment is that major amenities exist
within walking distance. The addition of new
residents can only enliven City Center. In
approving any future City Center projects,
recognizing the changing needs of potential
residents and how proposals are funded will
remain key factors in how and what housing
formats are built in City Center.
01/26/2021 FINAL DRAFT 25
22Plymouth City Center 2.0 a new community vision
City Center’s Market Framework for
the Future
In implementing the vision described in this City
Center study, the above update emphasizes
the ongoing market changes that will affect
Plymouth’s City Center and commercial
districts of all types nationally. Often, local
communities assume that their commercial
areas are exempt from any impact, but all
districts and their individual opportunities will
be affected by change. Flexibility in approaching
redevelopment and implementation will be
necessary, particularly as the pandemic’s
impact recedes. This flexibility in approach
also assumes predictable review and approval
processes.
The following recommendations are intended
to provide a market framework for considering
City Center decisions over time.
»Emphasize residential redevelopment at City
Center’s priority sites. Throughout the study
process, housing has been identified as City
Center’s primary opportunity. Developer
and market interest exists. Quality housing
infill, also self-parked, will diversify City
Center uses and enliven the area.
»Re-examine City Center’s design guidelines.
Updates should re-emphasize quality
housing materials and product, as noted
in the current guidelines, and emphasize
City Center’s overall character, relating
future structures to the public realm as
recommended. These same updates should
provide sufficient guidance to developers
to submit planned developments that can
be approved. Issues specific to City Center’s
design guidelines can be addressed as part
of the City’s ongoing conversations with
the development community to ensure
predictable review.
»Identify the local threshold for fiscal
involvement in City Center redevelopment.
This study’s development scenario for
residential on City-owned property presents
an opportunity for that policy conversation
and its impact on future planned
developments. Again, the goal is facilitating
good development for the City and catalytic
impact for City Center.
»Consider City Center’s overall mix of uses
versus mixed use. The business mix in any
commercial district is never static. The mix
changes routinely—businesses move or
close for individual reasons, new businesses
assume those locations, and over time,
totally new business types or formats
emerge. The current mix data, described in
the Interim Market Study, notes City Center
functions successfully as an area for small
office users and employers, with destination
retail and restaurants and government
institutions. These discrete and successful
uses will remain important to City Center’s
future. The opportunity for new housing
is another component of considering and
expanding City Center’s overall mix of uses.
Most of identified priority sites and their site
concepts lack the density and traffic needed
for traditional mixed-use development
(meaning residential units located above
ground level commercial lease space) to
succeed at those locations. Too often what
is identified as ‘retail’ or ‘commercial’ space
at street level is neither a good location nor
affordable for the types of independent
businesses (in all categories) envisioned by
Plymouth residents in the study’s outreach.
»Related to the mix of uses, accommodate
emerging business operating needs and
uses. Strengthening the overall mix with
supplemental uses, such as more restaurants,
and emerging uses, such as the outdoor food
hall and temporary retail or varied pop-ups,
will create that unique experience desired
by Plymouth residents. Working with City
Center’s commercial brokers and property
owners to attract strong and unique ground
level tenants to City Center will remain
important. Incentives for improvements to
existing buildings (noted in the next bullet
point) or to attract new business types to
City Center may be developed for short- or
long-term use to improve the area. Many
communities use various incentives to
attract restaurants. Examples of incentives
include providing assistance for build outs or
reduced permit fees. These incentives could
also be structured to support post-pandemic
restaurant growth, incorporating ideas
from area restaurateurs. Being prepared
to address the operating needs of such
businesses will be important to incremental
improvements (and creating excitement)
in the overall mix. The City’s regulatory
framework needs to respond to how actual
01/26/2021 FINAL DRAFT 26
23Plymouth City Center 2.0 a new community vision
business operations change over time. Uses,
such as ghost kitchens (defined above), are
one example. Others include:
• Outdoor dining, assuming available sidewalk
width, parklet options, or reduced parking
space numbers in adjacent lots;
• Roof-top dining, if possible, on City Center’s
required flat roofs;
• Walk-ups and/or drive-thrus. Recognizing
the current City Center design guidelines
prohibit drive-thrus, walk-up windows
are an emerging option for restaurant
carryout. Permitting drive-thrus are often
challenging issues for local communities.
They are inappropriate for many locations,
but their impact on unit revenues is
undeniable—typically 30% or greater sales.
The Congress for New Urbanism (CNU) has
recently developed a walk-up and drive-thru
format12 for restaurants in downtowns or
traditional commercial districts (illustrated
in Chapter 7, Action 2). A drive-up in these
denser districts is only permitted with walk-
up windows.) For City Center, considering
how to evaluate any future drive-thru
proposals should be re-examined during
implementation.
• Parking for curbside pick-up and delivery
services as part of existing parking;
• Multiple users, such as restaurants within
restaurants, and retailers within retailers.
»Foster City Center as the location for area
entrepreneurs. As noted, collaborating
with existing property owners to improve
12 https://www.cnu.org/publicsquare/2020/09/03/
drive-throughs-walk-ups-and-covid
their buildings is an important opportunity.
Vintage properties in most commercial
areas serve as the home for new, growing
and often unique businesses. Supporting
entrepreneurial growth over the short-term
can include the following efforts:
• Consider new incentives to assist City Center
property owners in improving their buildings.
Multiple models for small scale incentives,
such as matches for tenant build-outs or
exterior improvements, exist in Minnesota
and elsewhere that reinforce the local vision
for the targeted commercial district;
• Focus on restaurants initially. The first step
is identifying those existing City Center
buildings suitable for build-out as food and
beverage locations, including such uses as
breweries or distilleries;
• Develop relationships with regional small
business resources, such as area Small
Business Development Centers (SBDCs) and
small business lenders, such as Twin Cities
Metro.
• Expand current relationships with area
commercial real estate brokers to identify
and monitor tenant interest in City Center;
• Work with City Center’s small and destination
businesses to facilitate any expansions within
the study area.
»Consider shared parking options within City
Center as interim solutions. Larger parking
solutions are described elsewhere in this
study, but simpler and lower cost programs
can address specific concerns. For example,
with the prevalence of office uses in City
Center, are there ways to collaborate with
City Center (and nearby) property owners
to share parking when these businesses
are closed? For example, parking for the
Islamic Center during observances remains
challenging. Working to identify available
nearby parking within walking distance or
via a quick shuttle ride could mitigate the
parking concerns for the Islamic Center and
for the City. Identifying existing, available
parking in the evening, for hockey games,
or for special events represents additional
solutions.
As was noted in this study’s outreach, residents
and visitors want a better City Center, and
all the elements for a successful future exist.
Quality new development can expand how City
Center is used and appears. Area businesses,
including City Center’s destination businesses,
can expand their sales, markets, and locations
over time. New businesses and emerging
business formats can create interest and
help existing businesses grow. City Center’s
property owners can affect tenancies with
visible improvements to their properties. The
area’s institutions can continue to contribute
to the City Center’s image, as the Plymouth’s
civic core. New residents can invigorate City
Center. All of this hard work by the City and
its local partners will ensure that City Center’s
vision becomes reality.
01/26/2021 FINAL DRAFT 27
24Plymouth City Center 2.0 a new community vision
4. Analysis of Primary Neighborhood Elements
An analysis of the existing City Center
identified the following key issues:
1. The existing land uses are
destination-driven uses and
residential development is
missing from City Center.
2. It is difficult to walk or bike from
one parcel to the next, thus
people who use City Center will
generally only visit one business
and leave.
3. There isn’t a “downtown” or an
identity to City Center.
The City Center 2.0 recommendations included
in this study focus on three guiding principles or
elements to address the above issues: Making
a Neighborhood, Making a Place, and Making
Connections.
Making a Neighborhood
Making a Place
Making Connections
Downtown neighborhoods should be compact, pedestrian-friendly, and mixed-use. Traffic and
visits drive success of commercial and retail centers, and providing housing offers additional
market, visibility and dynamics to a neighborhood.
Public spaces must be flexible in their design. Placemaking is a collaborative process where
community members, business partners, property owners, and municipal governments work
together to reimagine public spaces, including commercial corridors, through urban design,
events, and programs. The goal of placemaking projects is to help people feel more connected
to places: more excited to walk to lunch, shop locally, and play with their kids in community
parks.
Great neighborhoods are walkable, drivable, and bike-able and include a variety of civic
spaces, such as plazas, greens, and parks.
01/26/2021 FINAL DRAFT 28
25Plymouth City Center 2.0 a new community vision
Making a Neighborhood
Analysis: Land Use
The existing land uses are destination-driven uses and residential
development is missing from within City Center. Buildings are spread
out on large lots with large areas of surface parking between them.
The figure ground diagram below showcases the vast amount of space
between buildings. This space between buildings makes it undesirable to
walk or bike from one parcel to the next, thus people who use City Center
will generally only visit one business and leave. This is not beneficial for
the private sector or the community. Capturing multiple visits per trip
can serve to increase business exposure and revenue. The introduction
Figure 9. Existing figure ground diagram shows the large gaps between existing buildings Figure 10. Existing land use diagram shows the lack of residential uses within City Center
of residential uses and the strategic placement of new buildings will
work towards creating an authentic neighborhood feel that is currently
lacking from City Center. A neighborhood that includes a mixture of uses
and attractive placement of buildings and outdoor destinations. See
Chapters 6 & 7 for actions that support the “Making a Neighborhood”
guiding principle.
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26Plymouth City Center 2.0 a new community vision
Making a Place
Analysis: Open Space and the Public Realm
The existing public realm primarily exists in the form of public streets
(right-of-ways). These streets are auto-oriented and provide little to
no pedestrian experience. While the Hilde Performance Center serves
as a public gathering space, it is visually disconnected from the rest of
City Center and does not provide added value to commercial uses. The
creation of new “places” in the form of public, private, or semi public
gathering spaces—connected to the area commercial uses—is key to
making a memorable experience for City Center. This should occur
within redesigned right-of-way and also new plaza/park spaces within
private property as part of public/private joint ventures. See Chapters
6 and 7 for opportunities and actions that support the “Making a Place”
guiding principle.
The current public open space in located or associated with:
»Public Right-of-Ways (boulevards and terrace area next to sidewalks)
»Plymouth Library
»Hilde Performance Center
»Plymouth Creek Park
»Government Center
»Recreational trails
»Stormwater management
Figure 11. Example of terrace area next to a sidewalk within the City Center 2.0 study area Figure 12. Existing open spaces within the City Center 2.0 study area
Library
Government
Center
Plymouth
Creek Park
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Open space STUDY AREA BOUNDARYHilde
Performance
Center
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27Plymouth City Center 2.0 a new community vision
Public Realm Inspiration for City Center
Gathering space within ROW Gathering space on private property Large, destination gathering space
Figure 13. The images on this page include a variety of outdoor
spaces both large and small that contribute to an active
and welcoming public realm
01/26/2021 FINAL DRAFT 31
28Plymouth City Center 2.0 a new community vision
Making Connections
Analysis: Street and Block Pattern
The main roadways for City Center provide excessive space for cars.
Streets in City Center are under 11,000 AADT (annual average daily
traffic) and include bi-directional two-lane drives with turn lane
configurations. MnDOT recommends this configuration at 16,000
AADT or greater. Lane widths within City Center are also wider than
local standards, with widths ranging from 14 feet to 18.5 feet wide.
Hennepin County recommends travel lanes no wider than 12 feet, with
11 feet preferred. As such, this lane configuration results in the area
dedicated for vehicular traffic to be excess of what is needed.
Additionally, City Center’s road layout creates “superblocks.”
Superblocks are over-scaled blocks larger than typical city blocks. This
type of block layout makes vehicular and non-vehicular connections
difficult. For example, the distance between Vicksburg Lane and
Figure 14. Existing street right-of-way (ROW) widths are wide and oversized for automobiles Figure 15. Existing street and block pattern result in “superblocks” that make vehicular and non-vehicular
connections difficult.
Plymouth Boulevard along 36th Avenue N is approximately 1,100
feet. That is nearly three times the size of a block that would typically
support walkability and promote multiple-stop trips by visitors.
Development best practice includes sizing of blocks between 200 feet
to 400 feet per block in order to support walkability.
The diagram below illustrates red dashed circles; this represents about
a 10-minute walking radius. While feasible to walk across City Center
from one business to another, the lack of internal circulation facilities
that connect the public right-of-way to building entries makes this less
likely to occur. This is further discouraged with existing parking lot
layout.
In Chapters 6 & 7, more detail regarding the opportunities and
recommendations will be discussed.
Approximately
1,100 feet
MN
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Ro c k f o rd R d
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29Plymouth City Center 2.0 a new community vision
Analysis: Bike and Pedestrian Connectivity
Many bike trails surround and connect to City Center, but traveling
through City Center has its challenges. Bicyclists would chose to either
ride on the street in the vehicular travel lane or on sidewalks. While
avid cyclists may find riding on the street next to cars to be feasible, it is
not typically comfortable for the majority of riders. Currently, there are
no bike-friendly facilities within the project area.
The existing sidewalks provide space for pedestrian movement, but
while sidewalks are located along public streets, they are placed
immediately adjacent to moving cars with no terrace space. This type
of arrangement yields the sidewalks uncomfortable for pedestrians.
The scale of surrounding features—buildings, streetscape features such
as benches or wayfinding signage, and trees—help to make a place feel
comfortable, human-scale, and provide a sense of enclosure. While City
Center enjoys some of these features, they are often spread out and it
loses the visual connection needed.
Additionally, major building entrances lack direct and intuitive
pedestrian and bicycle connections from the public right-of-way. This
causes a disconnect for those on foot or bike from the public street to
the businesses. The yellow dots in Figure 17 clearly show a disconnect
between many of the building entries and their lack of connection to
existing sidewalks and trails.
See Chapters 6 & 7 for actions that support the “Making Connections”
guiding principle within City Center.
Figure 16. Existing bike and pedestrian facilities are disjointed; existing neighborhood trails (shown in
green, above) lead to the City Center boundary but are limited within the City Center.
Figure 17. Enlarged view of study area illustrates that most building entrances (with the exception of the
office condominium buildings on Plymouth Boulevard between 36th Ave N and 35th Ave N) are
oriented to the parking lots rather than the street, and that existing trails and sidewalks in the
public realm lack clear connections to building entrances.
MN
5
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Existing Sidewalk
Existing Trail
Building Entrance
(approximate locations)Rockfo r d Rd
MN 55Vicksburg Ln36th Ave N
Key for Figures, right
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30Plymouth City Center 2.0 a new community vision
Making Connections
Connectivity Inspiration for City Center
Traffic Calming
Figure 19. (1) Curb bump outs or pavement design of intersections can serve as traffic calming methods as well as add beauty to the public realm; (2) Pavement markings, landscaping, materials, and amenities all
contribute to a pedestrian friendly public realm
11
21
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31Plymouth City Center 2.0 a new community vision
Bicycle / Pedestrian Facility Design
Figure 20. Examples (above and above right) of ways to integrate widened sidewalks and multi-use trails
into City Center.
Walkability: Four Key Elements
Yes
No
No
No
01/26/2021 FINAL DRAFT 35
32Plymouth City Center 2.0 a new community vision
5. The Vision
As part of this study, City Center is divided into four subareas of focus,
each with their own characteristics and opportunities for growth and
change:
Area A focuses on creating a public gathering
space, while increasing connectivity and residential
development opportunities.
Area B emphasizes what is being called the “restaurant
cluster.” An area for food, entertainment and hospitality,
creating a social hub within City Center.
Area C looks at increasing economic value through
future job creation as well as residential development.
Area D is the civic heart and anchor of the City, with the
iconic Hilde Performance Center, Government Center
and the post office.
Figure 21. City Center 2.0 planning subareas
Downtown
Restaurant
Cluster
Civic Center
The Corridor
36th Ave N
37th Ave N
Plymouth Blvd35th Ave N
34th
A
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B
C
D
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33Plymouth City Center 2.0 a new community vision
1. Provide a framework
that allows guidance and
predictability for landowners
and developers that wish to
redevelop parcels.
2. Improve connectivity
(walkability) between parcels.
3. Add a “downtown” or “central
place” that can be programmed
for active uses that will become
the hub, complementing the
Hilde Performance Center and
the rest of City Center uses.
Figure 22. Conceptual Master Development Vision
A
B
C
D
Subareas of studyXSTUDY AREA BOUNDARYMN
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Central Place Gathering
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34Plymouth City Center 2.0 a new community vision
6. Opportunity Areas
Within the four subareas of study, thirteen sites have been identified
as possible redevelopment opportunities. All of the redevelopment
scenarios included on the following pages are for discussion purposes
only. The possible transformation of private properties from their
current use to the depicted use in the scenarios is expected to occur over
time, in response to market demands, as property owners voluntarily
sell, develop, or change the use of their land.
Figure 23. Images (above and left) represent ideas for residential development and public spaces within
City Center.
01/26/2021 FINAL DRAFT 38
35Plymouth City Center 2.0 a new community vision
Opportunity Area Site Identification
Site Address Parcel ID Current
Land Use
1 18590
37th Ave N 16-118-22-32-0021 Utility
2 15800
37th Ave N 16-118-22-33-0006 Vacant Land /
Commercial
3 15600
37th Ave N 16-118-22-33-0011 Offices
4 3650
Plymouth Blvd 16-118-22-34-0015 Ice Center
5 3600
Plymouth Blvd 16-118-22-34-0017 Fitness
6 15600
36th Ave N 16-118-22-33-0012 Offices
7 15650
36th Ave N 16-118-22-33-0013 Offices/Bank
8 15700
36th Ave N 16-118-22-33-0004 Library
9 3350
Vicksburg Lane 21-118-22-22-0015 Grocery Store
10 15705
35th Ave N 21-118-22-22-0004 Liquor / Retail
11 15600
34th Ave N 21-118-22-22-0012 Auto Service
12 15525
34th Ave N 21-118-22-22-0019 Bank
13 3305
Plymouth Blvd 21-118-22-24-0005 Bank Figure 24. Possible redevelopment sites
36th Ave N
37th Ave N
Plymouth Blvd35th Ave N
34th
A
v
e
N
MN
5
5Vicksburg LnSubareas of studyX STUDY AREA BOUNDARYRoc k f o r d R d
A
B
C
D
01/26/2021 FINAL DRAFT 39
36Plymouth City Center 2.0 a new community vision
City Center is located along the high-visibility corridor of Minnesota
state highway 55 (MN 55). MN 55 runs along the southern boundary of
City Center, with annual average daily traffic (AADT) volume the highest
in the study area vicinity, between 36,000-41,000 AADT. Just north of
MN 55, Vicksburg Lane has a volume of 20,500 AADT, and Plymouth
Boulevard has a volume of 10,700 AADT.
One of the areas of highest perceived traffic congestion is 36th Avenue
North at Plymouth Boulevard. It is presumed that most traffic entering
Life Time Fitness—a high traffic generator within the study area—is
through this intersection, as shown in the diagram at right. Given this, in
order to improve connectivity while also providing for opportunities for
redevelopment, it is recommended to promote alternate and new access
points into the Life Time and the P.I.C., as illustrated in the diagram on the
following page. Although 37th Avenue North at Vicksburg Lane is not
signalized currently, as traffic patterns change with new development,
the City may look to add a signal if warranted in the future. These
alternate circulation routes combined with strategies to incorporate and
enhance bicycle and pedestrian facilities, will provide good multi-modal
access.
The Hilde Performance Center is a major attraction in the City of
Plymouth. At performances, or with special events hosted in the park,
parking is utilized throughout the surface lots within City Center—both
public lots at Government Center and the private commercial parking
lots. Retaining available parking for special event use is important to the
success of the Hilde.
City Center has ample surface parking for existing and new development
with commercial uses. Going forward, shared parking strategies can be
employed for complementary uses. Shared parking may be used for uses
that require peak parking usage at different times of the day or different
days of the week. Examples of this might be an office building in use
during regular business hours and a restaurant with peak dining after
5:00 PM. Figure 25. Existing vehicular circulation to Life Time Fitness and the P.I.C. AADT Source: MnDOT.
Existing vehicular
access to the P.I.C. and
Life Time Fitness
36th Ave N
37th Ave N
35th Ave N
34th
A
v
e
N
MN
5
5
Rockf
or
d
R
d
STUDY AREA BOUNDARYVicksburg LnP.I.C.
Life Time
Fitness
36,000
AADT
41,000
AADT
20,500
AADT
13,800
AADT
10,700
AADT
10,500
AADT
Hilde
Performance
Center
Vehicular Circulation and Parking
01/26/2021 FINAL DRAFT 40
37Plymouth City Center 2.0 a new community vision
A
B
C
D
Subareas of studyX
36th Ave N
37th Ave N
Plymouth Blvd34th
A
v
e
N
MN
5
5
Rockf
or
d
R
d
STUDY AREA BOUNDARYVicksburg LnAreas of consideration
for parking structure(s)
Proposed access to the
P.I.C. and Life Time
Figure 26. Example of a new construction redevelopment that retained existing surface parking for public
use, and built new additional underground spaces for the residential development above.
P.I.C.
Life Time
Fitness
For new development such as mixed use and residential multi-family
buildings, incorporating parking into the site development plan will be
necessary, to adequately respond to the market demand for the amount
of parking needed for these types of uses. At such time development
is planned, it may be an opportunity for the City to provide additional
structured spaces to provide parking in areas of City Center with high
demand.
A next step may be to study the parking location, quantity and availability
specifically in a parking study. While the quantity of parking may be
plentiful for day-to-day use in City Center, the demand in certain key
areas or during special events may lead to a better understanding of the
need for additional structured parking. Based on the opportunity sites
identified in the following sections, the diagram on this page illustrates
areas of consideration for parking structures in conjunction with new
redevelopment.
Figure 27. Conceptual master plan rendering, with vehicular circulation and areas noted for future
parking structure ; see “Area A: Downtown” for a more in-depth look at proposed circulation
35th Ave N
01/26/2021 FINAL DRAFT 41
38Plymouth City Center 2.0 a new community vision
Area A: Downtown
Figure 28. Conceptual site design scenario for Area A: Downtown
Library
Cub Foods
1
2
4
4 4
5 6
3
7
6
6
Reconstructed 36th Ave N1
2 Reconstructed Plymouth Blvd
3 New public gathering space
4 2-story residential townhomes
Mixed-use development5
6 Mixed-use development
7 Residential developmentSTUDY AREA BOUNDARYSTUDY AREA BOUNDARYHilde
Performance
Center
Life Time
Fitness
P.I.C.
37th Ave N
Vicksburg Ln01/26/2021 FINAL DRAFT 42
39Plymouth City Center 2.0 a new community vision
PLYMOUTH BLVD
NEW BELOW GRADE PARKING
EXISTING PARKING LOT GRADE
NEW PARKING LOT GRADE
NEW RESIDENTIAL BLDG
Figure 29. Existing aerial of Lot 5
Lot 5 Development Scenario
Site Overview
»2.4 acres City-owned land (part of larger 17 acre parcel)
»Life Time front door site
»Dynamic location: high visibility site, access to retail and recreation
amenities, and proximity to grocery
»237 existing parking stalls (south of entrance drive)
Development Overview
»4-story, 80 unit residential building with public plaza (City Center
Central Plaza). Typical density for this type of development can be
approximately 30-45 dwelling units per acre.
»Parking: No loss of parking, and parking to be added to serve the
addition of residential units.
»Retains existing 237 parking stalls (surface lot tucked below
proposed building)
»Addition of up to 100 below-grade parking for proposed residential
units (1.25 parking spaces per dwelling unit)
»Added development value estimated at $20.8 MM
Figure 30. Building cross section of proposed 4-story residential building Figure 31. Conceptual development scenario
Area A: Downtown
1
1
3
2
Life Time
FitnessPlymouth Blvd36th Ave N
2 New public gathering space
Mixed-use development1
3 Residential development
01/26/2021 FINAL DRAFT 43
40Plymouth City Center 2.0 a new community vision
Figure 32. Existing site circulation Figure 33. Proposed site circulation provides flexibility
1 1
3
2
Life Time
Fitness
Plymouth Blvd36th Ave N
2 New public gathering space
Mixed-use development1
3 Residential development
P.I.C.
Primary circulation
Managed access
Employee or service
Primary building access
Secondary building access
Life Time
Fitness
Plymouth Blvd36th Ave N
P.I.C.
37th Ave N37th Ave N
Primary circulation
Employee or service
Primary building access
Secondary building access
To accommodate new infill-development opportunities, Figure 33
highlights two new entries suggested off of Plymouth Boulevard north
and south of 36th Avenue. Access opposite 36th Avenue would be
maintained, however this would be redesigned to feature a large Public
Square and pedestrian circulation serving new building entries as well
as the Lifetime Complex. Vehicular access would be resolved through a
traffic management strategy continuing to accommodate normal daily
and mid-week ingress and egress patterns at this entrance. For special
events and seasonal programming, portions or directional flows would
be temporarily modified to accommodate special traffic needs and
minimize pedestrian conflict. Existing circulation routes from the north
and two new access points from Plymouth Boulevard maintain service
access to the east. This continued access to all entrances provides
maximum flexibility in response to year-round programmed use of the
site.
Area A: Downtown
STUDY AREA BOUNDARY STUDY AREA BOUNDARY
01/26/2021 FINAL DRAFT 44
41Plymouth City Center 2.0 a new community vision
Figure 34. 4-story residential structures similar in scale to those
preferred during the community engagement
Examples of housing types
that could work on Lot 5 and
future complimentary retail and
commercial development
City Center Central Plaza
Figure 35. Example of ground level retail spilling out onto a public
space
The City Center Central Plaza is envisioned as a
public space, facilitated through a partnership
with development in the area. In the area of
the City Center Central Plaza, the surrounding
development should accomplish two things:
»Define the space through the building
walls by creating a sense of enclosure
that is beneficial for plaza spaces to feel
human scale.
»Activate the space by providing foot
traffic in the area.
It is meant to complement the existing Hilde
Performance Center and provide an alternate
space that could be programmed to support
the City Center restaurants, retail and
entertainment venues.
Figure 36. Flexible design allows for wide variety of event
programming
Design inspiration for Lot 5 and surrounding area
01/26/2021 FINAL DRAFT 45
42Plymouth City Center 2.0 a new community vision
Area B: Restaurant Cluster
Figure 37. Conceptual site design scenario for Area B
1
2
76
10
5
9
Reconstructed Plymouth Blvd1
2 Reconstructed 35th Ave N as a managed street
4 Reconstructed 34th Ave N access to MN 55
5 New public gathering space (City Center Green)
Mixed-use residential and retail development6
7 Mixed-use residential and retail development
8 Residential development
8
4
9 6-story hotel
10 Potential BRT station to be studied
Area B: Restaurant Cluster
Plymo
u
t
h
B
l
v
d
34th
A
v
e
N
MN
5
5
Government
Center
Hilde
Performance
Center
6
3
3 Enhanced entrance to the Hilde Performance Center
STUDY AREA BOUNDARY
01/26/2021 FINAL DRAFT 46
43Plymouth City Center 2.0 a new community vision
Figure 38. New development will have high visibility from MN 55 and should include prominent
architectural features
Site Overview
»2.6 acre site (approximate size with newly proposed 34th Avenue /
MN 55 access
»US Bank existing use
»High visibility from highway and susceptible to change due to proposed
roadway project
»73 existing parking stalls
Development Overview
»6-story, 120 room hotel (along MN 55)
»4-story, 43 unit residential building (along Plymouth Blvd)
»Residential densities typically in the 20-40 dwelling unit per acre range
for this type of development
»120 surface lot parking with 86 below-grade parking for residential
»Added development value estimated at $33.68 MM
Figure 39. (top) Existing aerial of Lot 13; (bottom) Conceptual development scenario
Lot 13 Development Scenario
Plymo
u
t
h
B
l
v
d
34th Ave NMN
5
5
ST
U
D
Y
A
R
E
A
B
O
U
N
D
A
R
Y
1 Residential development
2 6-story hotel
1
2
01/26/2021 FINAL DRAFT 47
44Plymouth City Center 2.0 a new community vision
Figure 40. (top) Existing aerial of Lot 10/11; (bottom) Conceptual
development scenario with mixed use residential and commercial
development and integrated public space.
Site Overview
»1.3 acre site (Lot 10); 1.5 acres site (Lot 11)
»Existing restaurants in adjacent parcels
»76 existing parking stalls between the two properties
Development Overview
»Redevelopment scenario looks to create a new green space that acts as an outdoor
gathering destination and spillover seating for existing and new restaurants. Short-term
redevelopment could occur within existing parking lots surrounding the green. Long-term
redevelopment at Lot 10 to the east of 34th Avenue N.
»82 surface lot, shared-on street parking surrounding green space, 80 below-grade parking
for residential
»Added development value estimated at $18.74 MM
Figure 41. (left) Buildings should be designed to connect interior and exterior spaces; (middle) Pop-up restaurants or food trucks within the park are encouraged; (right) Green vs. paved space is desirable.
City
Center
Green
Lot 10
Lot 11
City Center Green and surrounding development sites (Lot 10 & 11)
Area B: Restaurant Cluster
35th Ave N
01/26/2021 FINAL DRAFT 48
45Plymouth City Center 2.0 a new community vision
Figure 42. Options for integrating additional seating into the public realm and quasi-public spaces that can be incorporated into private developments.
01/26/2021 FINAL DRAFT 49
46Plymouth City Center 2.0 a new community vision
Figure 43. Conceptual site design scenario for Area C
1
2
3
Reconstructed Plymouth Blvd1
2 Reconstructed 37th Ave N
3 Residential/Mixed-use development
4 Mixed-use development
4
Area C: The Corridor
Vicksburg LnSTUDY AREA BOUNDARY
R o c k f o r d R d
01/26/2021 FINAL DRAFT 50
47Plymouth City Center 2.0 a new community vision
Figure 44. (top) Existing aerial of Lot 3;
(right) Conceptual development
scenario
Site Overview
»4.3 acre site
»Letterman Site
»Opportunity site due to its proximity to the P.I.C. and Life Time Fitness
»138 existing parking stalls
Development Overview
»4-story mixed-use buildings
»Typical density would be between 20-40 dwelling unit per acre for this
type of development
»Up to 50,000 SF of commercial space with residential units above
»144 surface lot parking with up to 250 below-grade parking for
residential units
»Added development value estimated at $45.15 MM
Figure 45. Mixed-use housing examples
Lot 3 Development Scenario
STUDY AREA BOUNDARYPl
ymouth Bl
vd1 Residential/Mixed-use development
2 Mixed-use development
1
2
01/26/2021 FINAL DRAFT 51
48Plymouth City Center 2.0 a new community vision
Action 1
Assure the study recommendations are not in
conflict with the 2040 Comprehensive Plan
In order to give the City Center 2.0 a clear role in future development
decisions, it should be reviewed to assure that no recommendations are
in conflict with the 2040 Comprehensive Plan and amended as necessary.
Requests for changes in current zoning (including conditional uses,
planned developments, text/map changes) as well as subdivisions must
be reviewed for consistency with the Comprehensive Plan. Consistency
does not imply precise conformity to the maps and development
scenarios shown in this report. Rather, the Planning Commission and
City Council would determine whether the proposed changes were
materially and substantively consistent with the principles and intent
of this study. In some cases this might include specific dimensional and
geometric features while in other cases “consistency” may be related
more to the types of uses, the character of the public places, the location
of infrastructure and, most importantly the overall community costs and
benefits in relationship to surrounding parcels and districts.
7. Action Plan Framework
Overview
The actions included in this section are both process-based and land-
focused actions. The actions involve changing the regulatory policies,
the physical environment, the relationship and communication network,
and the incentive structures that exists today in the City of Plymouth.
The final pages of this section includes an Action Plan Summary Table
that identifies Roles/Responsibilities, and Timing.
Recommended Actions
1 Assure the study recommendations are not in conflict with the 2040
Comprehensive Plan
2 Amend current zoning & subdivision ordinances
3
Utilize multi-modal street design that accommodates all modes of
transportation, improves pedestrian safety, and promotes traffic
calming in key areas
3.1: Plymouth Boulevard
3.2: 35th Avenue North
3.3: 36th Avenue North
3.4: 37th Avenue North
4 Create memorable gathering spaces
4.1: City Center Central Plaza
4.2: City Center Green & 35th Avenue North Shared Street
5 Pursue redevelopment for opportunity sites
5.1: Area A: Downtown
5.2: Area B: Restaurant Cluster
5.3: Area C: The Corridor
6 Focus on public-private partnerships
01/26/2021 FINAL DRAFT 52
49Plymouth City Center 2.0 a new community vision
Action 2
Amend current zoning & subdivision ordinances
The development scenarios and market direction included in this
study identified a number of proposed uses and site/building design
alternatives that may be in conflict with existing regulations. The City
should identify conflicts within existing regulatory documents and draft
amendments for Council action.
1. Re-examine City Center’s design guidelines. An update should re-
emphasize quality housing materials and product, as noted in the
current guidelines, and emphasize City Center’s overall character,
relating future structures to the public realm as outlined in Chapter
4, such as bringing building edges closer to the right-of-way and
encouraging building entrances to be oriented to the street. The
update could include the addition of the area west of Vicksburg Lane
(see the Boundary Analysis section of Chapter 1).
2. Ensure the City Center design guidelines have standards to promote
bicycle and pedestrian connectivity from the public right-of-way to
the building entrances.
3. Allow for flexibility in minimum parking requirements and maximize
shared parking options within City Center. Create procedures to
allow for the Planning Commission to override parking requirement
when the applicant provides evidence that the parking demand can
be satisfied with a reduced parking supply.
4. The City’s regulatory framework should respond to the ways
business operations could change over time. New uses include:
• Outdoor dining, assuming available sidewalk width, parklet options, or
reduced parking space numbers in adjacent lots;
• Roof-top dining, if possible, on City Center’s required flat roofs;
• Walk-up and/or drive-thru windows. Recognizing the current design
guidelines prohibit drive-thrus, walk-up windows are an emerging option
for restaurant carryout. The Congress for New Urbanism (CNU) has
recently developed a walk-up and drive-thru format1 for restaurants in
downtowns or traditional commercial districts, as shown at right. A drive-
up in these denser districts is only permitted with walk-up windows.
1 https://www.cnu.org/publicsquare/2020/09/03/drive-throughs-walk-ups-and-covid
• Parking for curbside pick-up and delivery services as part of existing
parking—either in their parking lot, or in a public space that is designated
by permit as a temporary pick up zone;
• Multiple users, or restaurants within restaurants;
• Shared and ghost kitchens (delivery-only restaurant concept) to
streamline operations, particularly for delivery and curbside service.
5. Evaluate the uses and development standards for the City Center
zoning districts (CC-R & E, CC-OT & R, and CC-P) to allow for the
mix of uses envisioned. A strategy would be to use development
standards rather than strict density numbers to allow for the types
of mixed use buildings as seen in the master plan. Using height,
setbacks and meeting on-site parking requirements will set the
Figure 46. Design Guideline trends for walk-ups and drive-thrus appropriate for downtowns and
traditional commercial developments that allow for drive-thru windows but still promote
walkability (Congress for New Urbanism)
01/26/2021 FINAL DRAFT 53
50Plymouth City Center 2.0 a new community vision
zoning envelope in which developers will
be able to build. Work with build-to rather
than setbacks from the ROW to encourage
infill projects, and create a sense of
enclosure which defines the public realm.
The key to advancing the envisioned plan
is to allow the intended uses and building
sizes in each of the districts. This will give
the development world assurances that
pursuing a development in this area would
be received by the community, with a
seamless approval process.
Uses:
»Allow multi-family residential in the
three City Center zoning districts:
CC-R & E, CC-OT & R, and CC-P.
Setbacks / Build-to Lines:
»Suggested setbacks would be to
use a maximum setback for new
development, for example up to 15 feet,
which will create building edges along
the right-of-way and help cultivate a
downtown feel.
Heights:
»For residential development, 2-story
minimum, with 1-story a conditional
use. Maximum heights to be 5 stories.
»For commercial uses, 2-story minimum
for office uses (restaurant and retail are
allowed to be 1 story).
Zoning Map
Legend
City Limits
Lakes
FRD, Future Restricted Development
RSF-R, Single Family Detached Rural to Urban Transition
RSF-1, Single Family Detached 1
RSF-2, Single Family Detached 2
RSF-3, Single Family Detached 3
RSF-4, Single and Two Family
RMF-1, Multiple Family 1
RMF-2, Multiple Family 2
RMF-3, Multiple Family 3
RMF-4, Multiple Family 4
O, Office
C-1, Convenience Commercial
C-2, Neighborhood Commercial
C-3, Highway Commercial
C-4, Community Commercial
CC-P, City Center, Public
CC-OT & R, City Center, Office/Tech & Retail
CC-R & E, City Center, Retail & Entertianment
C-5, Commercial/Industrial
Adopted December 18, 1996
Dated February 27, 2018
Per Ordinance NO. 2018-03
Figure 47. Existing Zoning Map
City of
Medicine
Lake
Zoning Map
Legend
City Limits
Lakes
FRD, Future Restricted Development
RSF-R, Single Family Detached Rural to Urban Transition
RSF-1, Single Family Detached 1
RSF-2, Single Family Detached 2
RSF-3, Single Family Detached 3
RSF-4, Single and Two Family
RMF-1, Multiple Family 1
RMF-2, Multiple Family 2
RMF-3, Multiple Family 3
RMF-4, Multiple Family 4
O, Office
C-1, Convenience Commercial
C-2, Neighborhood Commercial
C-3, Highway Commercial
C-4, Community Commercial
CC-P, City Center, Public
CC-OT & R, City Center, Office/Tech & Retail
CC-R & E, City Center, Retail & Entertianment
C-5, Commercial/Industrial
B-C, Business Campus
I-1, Light Industrial
I-2, General Industrial
I-3, Heavy Industrial
P-I, Public/Institutional
PUD, Planned Unit Development
Adopted December 18, 1996
Dated February 27, 2018
Per Ordinance NO. 2018-03
0 0.5 1 1.5 20.25
Miles
THIS REPRESENTS A COMPILATION OF INFORMATION AND DATA
FROM CITY, COUNTY, STATE AND OTHER SOURCES THAT HAS
NOT BEEN FIELD VERIFIED. INFORMATION SHOULD BE FIELD
March, 2018
01/26/2021 FINAL DRAFT 54
51Plymouth City Center 2.0 a new community vision
Action 3
Utilize a multi-modal design
approach that accommodates all
modes of transportation, improves
pedestrian safety, and promotes
traffic calming in key areas
Multi-Modal Street Design Matrix
Street Component Design Treatment City Center
PEDESTRIAN ZONE1.0 Sidewalk Zone
1.1 Pedestrian Zone Width 10’ minimum
1.2 Walking Zone Width 5’ minimum
2.0 Buildings & Furnishings
2.1 Facade Zone (building setback)0’-15’ preferred
2.2 Furnishing Zone Width 3’ minimum
2.3 Bicycle Parking ¢
2.4 Lighting
2.5 Benches ¢
2.6 Sidewalk Cafés
2.7 Street Trees ¢
2.8 Planters (including stormwater)¤
2.9 Street Furniture ¢
2.10 Architectural Features1 ROADWAY ZONE3.0 Bicycle
3.1 Multi-Purpose Trails ¢
3.3 Bike Route Signs
4.0 Curbside Management
4.1 On-Street Parking2 ¢
4.2 Loading Zones ¢
4.3 Transit Stops ¢
4.4 Alternative Uses of Parking Lanes
4.5 Stormwater Management3 ¤
5.0 Cartway/Vehicle
5.1 Lane Width 12’ maximum
5.2 Medians4
6.0 Intersection Design
6.1 Marked Crosswalks
6.2 Curb Bump Outs ¢
6.3 Decorative Intersections5 ¤
The design of a multi-modal street considers
the interaction of several different roadway
users, elements of street design, and
surrounding land uses. To ensure that each of
these elements are considered during current
and future street reconstruction projects
within City Center, this study identifies six
street “components” that make up the public
right-of-way. The table to the right lists the
components along with their applicability to
City Center.
Legend
Required
¢High Priority – include if geometry permits
¤Priority
Desirable (if feasible)
1 Information kiosks, trellis, artwork, gateway elements
2 8’ width maximum
3 Biofiltration
4 8’ minimum for adequate plant growth
5 Recommended at key intersections
Figure 48. Multi-Modal Street Design Matrix
01/26/2021 FINAL DRAFT 55
52Plymouth City Center 2.0 a new community vision
Action 3 Recommendations:
1. Design multi-modal streets that accommodate all modes of
transportation: cars, buses, service shuttles, bicycles, and foot travel.
2. Use Hennepin County roadway design best practice as starting point
for redesign of roadway lane widths. Travel lanes no wider than 12
feet wide (11 feet preferred), transformation of dedicated left turn
lanes to shared through/turn lanes, on-street parallel parking no
wider than 8 feet.
3. Enhance bicycle facilities within City Center, connecting existing
bicycle network outside of project area to City Center destinations,
by adding new off-street multi-use paths.
• Provide separated bicycle facilities along key roadways within City Center
including Plymouth Boulevard and 36th Avenue North.
• Provide bicycle accommodations for secondary roadways within City
Center including 34th Avenue North, 35th Avenue North, and 37th
Avenue North.
• Incorporate bicycle safety design elements within all roadway redesigns,
where practical (such as bike boxes and route signage).
4. Ensure the “Pedestrian Zone” throughout City Center includes
a minimum of 5 foot wide terrace space that buffers pedestrian
walking from the roadway curb. Terrace space should aim to include
trees, lighting, seating, and other streetscape amenities.
5. Provide streetscape amenities along the entire corridor—trees,
planters, benches, bike racks, litter receptacles, information kiosks,
banners, signage—that improve the overall aesthetics and function
of the “Pedestrian Zone.”
6. Enhance intersection design using different paving materials, clear
crosswalk markings, curb bump-outs, landscaping, and streetscape
amenities (seating, bollards, litter receptacles, etc.).
7. Develop a study for City Center light pole and banner branding and
guidelines.
Figure 49. Street design components to include in right-of-way design that accommodates multiple modes of transportation such as vehicles, pedestrians and bicycles.
01/26/2021 FINAL DRAFT 56
53Plymouth City Center 2.0 a new community vision
Figure 50. Existing bicycle and pedestrian amenities, and proposed right-of-way improvements.
34th
A
v
e
N
36th Ave N
37th Ave N
Plymouth Blvd35th Ave N
MN
5
5
Vicksburg LnRockf
or
d
R
d
Planning Boundary
Existing Sidewalk
Existing Trail
Major Destination Entrance
New multi-use trail
New crossing
improvements
New streetscape
and/or bumpouts
Existing Bicycle and Pedestrian Amenities & Proposed Right-of-Way Improvements
The diagram at left illustrates the summary of public right-of-way
conditions and proposed improvements to achieve connectivity to City
Center, and within City Center.
A more detailed look at each of the primary roads—Plymouth Boulevard,
37th Avenue North, 36th Avenue North, and 35th Avenue North—and
proposed improvements may be found on the following pages.
01/26/2021 FINAL DRAFT 57
54Plymouth City Center 2.0 a new community vision
Plymouth Boulevard
Existing
»120-foot wide ROW
»No sense of arrival along any portion of the roadway
»Includes excessive space for automobiles (18.5-foot wide travel lanes,
9.5-foot wide parking lanes)
»Sidewalks are wide, but place pedestrians adjacent to automobiles
»No bicycle facilities provided
Proposed
»Reduced lane widths according to best practice (traffic calming)
»Addition of multi-use path along east side of street. Future coordination
needed with new MN 55 & 34th Avenue N intersection
»Planted terrace space to buffer pedestrians from automobiles
»Curb bump outs and decorative intersection design (traffic calming)
»At 35th Avenue N, improve visibility from Plymouth Boulevard to
Hilde Performance Center.
Figure 51. Existing Plymouth Boulevard street view
Figure 52. (top) Existing Plymouth Blvd street cross section; (bottom) Proposed cross section
Figure 53. Example of off-street multi-use paths adjacent to roadwaysFigure 54. Conceptual design of Plymouth Boulevard. Orange line with arrowheads indicate the
approximate location of street cross section, figure right.
35th Ave N
Hilde
Performance
Center
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55Plymouth City Center 2.0 a new community vision
36th Avenue North
Existing
»120-foot wide ROW
»Existing development is disconnected from the street
»Includes excessive space for automobiles (two 14-foot wide travel
lanes) and no on-street parking options
»Sidewalks are wide, but lack attractive terrace design
»No bicycle facilities provided
Proposed
»Reduced lane widths according to best practice (traffic calming)
»Addition of separated (buffered) multi-use trails
»Addition of on-street parking (traffic calming)
»Planted or decorative paving terrace design
»Curb bump outs and decorative intersection design (traffic calming)
»New redevelopment should include building frontage within 0-15 feet
of ROW and include public entries in an effort to increase walkability
and an active pedestrian zone between the library and Plymouth Blvd.
Figure 55. Existing 36th Avenue North street view
Figure 56. (top) Existing 36th Avenue North street cross section; (bottom) Proposed cross section
Figure 57. Example of off-street multi-use paths adjacent to roadways Figure 58. Conceptual design of 36th Avenue North. Orange line with arrowheads indicate the
approximate location of street cross section, figure above.
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56Plymouth City Center 2.0 a new community vision
37th Avenue North
Existing
»80-foot wide ROW
»Includes excessive space for automobiles (17-foot wide travel lanes)
»No bicycle facilities provided
Proposed
»Reduced lane widths according to best practice (traffic calming)
»Incorporate planted median
»Widened sidewalk or multi-use trail
Figure 59. Existing 37th Avenue North street view
Figure 60. (top) Existing 37th Avenue North street cross section; (bottom) Proposed cross section
Figure 61. Example of proposed planting area and multi-use trail
Figure 62. Conceptual design of 37th Avenue North. Orange line with arrowheads indicate the
approximate location of street cross section, figure above.
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57Plymouth City Center 2.0 a new community vision
Figure 63. Existing 35th Avenue North street view Figure 64. Existing 35th Avenue North street cross section
35th Avenue North
Existing
»60-foot wide ROW
»Existing development is disconnected from
the street
»Includes excessive space for automobiles
(15-foot wide travel lanes)
»Sidewalks are wide, but place pedestrians
adjacent to automobiles
»No bicycle facilities provided
Proposed
»Improved visual connection between the
Hilde Performance Center and existing
restaurants west of 35th Avenue N as well
as future redevelopment around City Center
Green public space
»Easily managed street entrances that allow
the street to be closed or open depending
upon public use patterns
»Narrow lanes with limited parking and curb
bump-outs
»Use of visually appealing paving materials
that harmonize, but still differentiate, drive
lanes, parking, and walking, and bicycling
»Trees, seating, bollards and other items
which create strong signals to drivers that
this is an area only for slow traffic.
Figure 65. Representation of proposed street articulation and use of
paving materials to differentiate zones
Figure 66. Proposed 35th Avenue North street cross section
Figure 67. Conceptual design of 35th Avenue N as a managed street connecting the Hilde Performance Center (labeled “1”) to existing
restaurants and future redevelopment around City Center Green public space (labeled “2”). Orange line with arrowheads indicate the
approximate location of street cross section, figure above.
1
2
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58Plymouth City Center 2.0 a new community vision
Action 4
Create memorable gathering spaces
Overview
Compact community development is rooted in centuries old traditions of
urban design, updated to accommodate modern issues and technologies.
Such developments typically feature pedestrian friendly streets, a mix of
land uses, connected street networks, and high-quality public spaces. The
name of the development—City Center—emphasizes the importance of
a destination or sense of arrival. This should be advanced through the
creation of large and small gathering spaces.
Traditionally, town squares or large gathering spaces must meet two
sets of criteria to be successful: they must work for major public events
and they must work for everyday activity. Typically, this is accomplished
through the design of the space as a highly flexible public place that
requires constant management, both for programmed activities and
everyday use. The illustrations included in this study show just one type of
simple, traditional pattern often used as a starting point for the evolution
of public spaces. Further design development should be pursued for City
Center Central Plaza and City Center Green.
Further design development, policies and management strategies should
be pursued for the following areas defining the public realm:
»City Center Central Plaza
»City Center Green
»Secondary court yards / small gathering spaces
»Forecourts / building entrance zones
»Streetscapes
»Enhanced entrance to the Hilde Performance Center
The diagram at right illustrates two examples of how such spaces could
be integrated into City Center. One approach would be for the City to
work in concert with developers to incorporate such spaces into design
plan when redevelopment occurs, in a public-private partnership.
MN 5
5
City Center
Green
City Center
Central Plaza
Entrance to the
Hilde
Performance
Center
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59Plymouth City Center 2.0 a new community vision
Upgrade and Redefine Publicly Controlled Lands
The public sector needs to lead by example. An overall design theme
needs to be developed that is supported by quality materials and
amenities demonstrating a commitment to existing property owners,
future investors, and create a sense of pride for the community residents
at large. The City needs to set the standard and commitment to good
design and implementation. This is where first impressions count.
The community’s brand and uniqueness expressed in the urban design
of the City Center needs to be resilient to changing trends and become
the foundation to place making. The design framework created needs
to accommodate change but carries the day when it comes to creating
a strong brand, a strong theme and design continuity within the
commercial core.
To clearly define a community’s commercial / social heart most places we
admire or look to as successful, mire the physical signs or lines defining
property lines, easements and setbacks. The less obvious these lines
are between public and private ownership the more cohesive the public
becomes and the creation of a singular experience of Place.
»City Center Central Plaza: In concert with a private
development, define the programming needs—both uses and
types of facilities—that are envisioned for the space. Examples
might be ice skating, space for outdoor movies, food trucks
or vendors, and outdoor wellness and exercise activities. This
programming can be used in the design of the public space. A
plaza of this scale would typically be about 1-2 acres. A size
such as this can be designed to accommodate 1,000-2,000
people comfortably. Popular for smaller gatherings of 500,
movie night, seasonal events, music, specialty open air fairs.
The final design and detail are important so the space is civic
is quality and scale, and can be programmed in large and
small spatial modules.
»City Center Green: Work in collaboration with the existing
food and beverage industry present in City Center and user
groups, and envision the type of space that would enhance
their market and operations. Use this exercise to help drive
the next steps in designing and implementing this type of
space.
Programming
One of the least expensive and low risk investments is the programming
of the public domain. This can build on current activities and existing
seasonal traditions. This can continue to be supported by community
groups and be led by a stronger and financially self-supported business
district. These activities can continue to support the center and are
critical in creating momentum that eventually elevates the brand,
participants and support creating economic benefits. These activities
develop a status where the public expects them as part of the local
structure and sometimes become the draw to host events by special
interests or become the reason why people invest or even locate in the
center.
Incentivizing Development of Public/Private Spaces
As stated earlier the city needs to lead by example. Equally important at
the beginning of any town center transformation is to develop strategies
which will incentivize participation of programs and investment in the
physical improvements by both private businesses as well as the City.
These incentives can take many forms and can be more fully evaluated
by the City going forward.
Management Strategy
This area can be addressed from both the private and public side. This
aspect of creating successful public places needs to be a priority for
both the public and private interests. Maintenance and operations are
as important as budgeting capital improvement costs. The hallmark
of loved and highly successful places is the commitment to maintain
the investment of the public realm. This becomes an excellent area to
interface and partner. A well-maintained space attracts the broadest
group of consumers, attracts investments, defines the community’s
reputation, and creates confidence in the tax payer.
Public Private Partnerships
Public / Private Partnerships make things happen. The public sector
has access to and can leverage a variety of public funding sources that
private owners cannot access. On the other hand, the private sector
can act much more expeditiously than the public sector. A commercial
district can establish a self-assessed tax district that can dedicate its
efforts and resources to complementing city resources. Quite often
there are great economies in working with the public works and parks
staff in consolidation of required efforts. Collectively the shared
financial contributions and efforts broaden community engagements
and ultimately community ownership in the broadest sense.
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60Plymouth City Center 2.0 a new community vision
1. Emphasize residential redevelopment at City Center’s priority sites.
Throughout the study process, housing has been identified as City
Center’s primary opportunity. Developer and market interest exists.
Quality housing infill, also self-parked, will diversify City Center uses
and enliven the area.
2. Consider City Center’s overall mix of uses versus mixed use. New
housing is one component of considering the overall mix of uses.
Most of identified priority sites and their site concepts lack the
density and traffic needed for traditional mixed-use development
to succeed. Too often what is identified as ‘retail’ or ‘commercial’
space at street level is neither a good location nor affordable for the
types of independent businesses (in all categories) envisioned by
Plymouth residents in the study’s outreach. The mix data, described
in the Interim Market Study (See the appendix), notes City Center’s
functions successfully as an area for small office users and employers,
in addition to destination retail and restaurants. Employees, based
in City Center and nearby, will remain important customers for City
Center’s businesses, and their spending power also contributes to
City Center business success.
3. Related to the mix of uses, accommodate emerging business
operating needs and uses. Strengthening the overall mix with
supplemental uses, such as more restaurants, and emerging uses,
such as the outdoor food hall and temporary retail or varied pop-ups,
will create that unique experience desired by Plymouth residents.
Being prepared to address the operating needs of such businesses
will be important to incremental improvements (and excitement) in
the overall mix.
Action 5
Pursue redevelopment for opportunity sites
36th Ave N
37th Ave N
Plymouth Blvd35th Ave N
34th
A
v
e
N
MN
5
5Vicksburg LnRockf
or
d
R
d
34th Ave N
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61Plymouth City Center 2.0 a new community vision
OPPORTUNITY AREA DEVELOPMENT SUMMARY
EXISTING PROPOSED
Site Address Parcel ID Current
Land Use Proposed Use Design Framework
AREA C1 18590 37th Ave N 16-118-22-32-0021 Utility Residential Building placement shall be along Vicksburg Lane with parking behind.
2 15800 37th Ave N 16-118-22-33-0006 Vacant
Land Commercial Building placement shall be along Vicksburg Lane with parking behind.
3 15600 37th Ave N 16-118-22-33-0011 Offices Mixed-Use Retail/
Residential
Building placement shall be along Plymouth Blvd with parking behind. Building design should
embrace the corner of 37th Avenue N and Plymouth.AREA A4 3650 Plymouth Blvd 16-118-22-34-0015 Ice Center Mixed-Use Office/
Retail/Residential
Building placement to include frontage along Plymouth Boulevard. Buildings adjacent to City Center
Central Plaza shall include active ground level uses (restaurants, retail).
5 3600 Plymouth Blvd 16-118-22-34-0017 Fitness Mixed-Use Commercial/
Residential
Building placement to include frontage along Plymouth Boulevard and along the new proposed
public space. Development should incorporate a destination public place.
6 15600 36th Ave N 16-118-22-33-0012 Offices Mixed-Use Retail/
Residential
Building placement to include frontage along 36th Avenue N, with parking behind. Building design
should embrace the corner of 36th Avenue N and Plymouth.
7 15650 36th Ave N 16-118-22-33-0013 Offices/Bank Mixed-Use Retail/
Residential
Building placement to include frontage along 36th Avenue N, with parking behind. Embrace existing
N-S Trail connectivity on the west side of the property.
8 15700 36th Ave N 16-118-22-33-0004 Library Residential Townhomes
(retain library)Building placement shall be along 36th Avenue N with parking behind.
9 3350 Vicksburg Lane 21-118-22-22-0015 Grocery Store Mixed-Use Commercial/
Residential Townhomes Building placement to include frontage along 36th Avenue N, with parking behind.AREA B10 15705 35th Ave N 21-118-22-22-0004 Liquor /
Retail Commercial
New development should incorporate a public space or public-private space that supports the area
restaurants, including space for outdoor dining. The public space should connect to the Hilde via a
managed street and improved bicycle and pedestrian facilities.
11 15600 34th Ave N 21-118-22-22-0012 Auto
Service
Mixed-Use Commercial/
Residential Building placement to include frontage along the street edges, with parking behind.
12 15525 34th Ave N 21-118-22-22-0019 Bank Mixed-Use Commercial/
Residential Building placement and entrance to address 34th Avenue N.
13 3305 Plymouth Blvd 21-118-22-24-0005 Bank Hotel / Residential Building placement and entrance to address Plymouth Boulevard.
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62Plymouth City Center 2.0 a new community vision
Action 6
Focus on public-private partnerships
Share “value-added” development
scenarios with property owners
»Identify the local threshold for fiscal
involvement in City Center redevelopment.
This Study’s development scenario for
residential on City-owned property presents
an opportunity for that policy conversation
and its impact on future planned
developments. Again, the goal is facilitating
good development for the City and catalytic
impact for City Center.
36th Ave N
37th Ave N
Plymouth Blvd35th Ave N
34th
A
v
e
N
MN
5
5Vicksburg LnRockford Rd
Subareas of studyX
A
B
C
D
Opportunity Sites New Development
Potential
»Area A = $105.6 MM
»Area B = $62.7 MM
»Area C = $57.8 MM
»Total = $225.1 M
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63Plymouth City Center 2.0 a new community vision
Develop possible cost models for proposed
improvements
»Ultimate implementation of private sector projects requires a positive
“return on investment” (ROI). Typically this analysis, in real estate and
related businesses, is described as a “pro forma” that analyzes the costs
and benefits from the specific viewpoint of the investor. While this
form of analysis is not the responsibility of the City, it is, in fact, an issue
that the City must recognize when considering the risks and rewards
borne by the private sector. When local governments are not familiar
with this mode of analysis, they may misinterpret the proposals and
outcomes put forward by developers. Ongoing concern for investment
scenarios can provide a basis for demonstrating a “business friendly”
attitude and a willingness to engage in subsidies, trade-offs and other
aspects of “making deals” that will garner more positive consideration
from the property development community.
Support entrepreneurial growth
»Foster City Center as the location for area entrepreneurs. As noted,
collaborating with existing property owners to improve their buildings
is an important opportunity. Vintage properties in most commercial
areas serve as the home for new, growing and often unique businesses.
Supporting entrepreneurial growth over the short-term can include
the following efforts:
• Consider new incentives to assist City Center property owners in
improving their buildings. Multiple models for small scale incentives,
such as matches for tenant build-outs or exterior improvements, exist in
Minnesota and elsewhere that reinforce the local vision for the targeted
commercial district;
• Focus on restaurants initially. The first step is identifying those existing
City Center buildings suitable for build-out as food and beverage
locations, including such uses as breweries or distilleries;
• Develop relationships with regional small business resources, such as
area Small Business Development Centers (SBDCs) and small business
lenders, such as Twin Cities Metro.
• Expand current relationships with area commercial real estate brokers to
identify and monitor tenant interest in City Center.
• Work with City Center’s small and destination businesses to facilitate any
expansions within the study area.
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64Plymouth City Center 2.0 a new community vision
Role & Responsibility Key
L = Lead agency / department
S = Shared lead responsibilities
C = Coordination role, but not the lead
Role & Responsibility Timing
City Partners
Short-term,
Long-term,
Ongoing?Community DevelopmentEconomic DevelopmentParks & RecPublic WorksCity CouncilHennepin CountyProperty OwnersRecommended Actions Description
1
Assure the study
recommendations
are not in conflict
with the 2040
Comprehensive Plan
Review the 2040 Comprehensive Plan to assure that no recommendations
are in conflict with the 2040 Comprehensive Plan and amended as
necessary.
S S Short-term
2 Amend current zoning &
subdivision ordinances
Modify the CC-OT & R, CC-R & E, and CC-P zoning districts to allow multi-
family residential uses and allow for flexibility for parking provided on and
off site.
L Short-term
3
Utilize “complete
street” design that
accommodates all
modes of transportation
When considering reconstruction for City Center streets, refer to Study
for incorporating or improving bicycle and pedestrian facilities and bring
vehicular and parking lanes within proposed design standards.
C C L Short-term
3.1 : Plymouth Boulevard
Reduce vehicular lane width, incorporate a multi-use trail, provide
planted terrace between sidewalk and curb, and incorporate bump outs at
intersections for traffic calming.
S S S Short-term
3.2 : 35th Avenue North Reduce vehicular lane width, add landscape buffer between sidewalk and
curb, and incorporate bump outs at intersections for traffic calming.S S S Long-term
3.3 : 36th Avenue North Reduce lane widths, add on-street parking, incorporate multi-use trail, add
landscape buffer along terrace area.S S S Short-term
3.4 : 37th Avenue North Reduce lane widths and incorporate planted median.C L S Long-term
4 Create memorable
gathering spaces
Solidify City Center as Plymouth’s “downtown” by implementing a few key
high-quality public spaces that support the existing uses.L C S Short-term
4.1 : City Center
Central Plaza
Create a destination-level public plaza near the intersection of Plymouth
Boulevard and 36th Avenue N.S S S Short-term
Action Plan Summary Table
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65Plymouth City Center 2.0 a new community vision
4.2 : City Center Green
& 35th Avenue N
Shared Street
Develop a managed street approach to the street redesign, that connects
the Hilde Performance Center to the proposed City Center Green area.
Incorporate narrowed lanes and bumpouts for traffic calming on 35th
Avenue N, add paving that differentiates between vehicular zone, and
bicycle and pedestrian zone. Add planting, trees and other streetscape
elements that serve as visual cues to drivers to slow traffic.
S S S Long-term
5 Pursue redevelopment
for opportunity sites
Focus on opportunity sites and attracting residential developers in the
near term, particularly for Sites 3, 5 and 13. Maintain the overall mix of
commercial uses in City Center, as the employment and visitor base helps
sustain the other retail and commercial uses. Accommodate incremental
improvements and supplemental uses to support the changes needed for
current businesses to be successful and keep City Center exciting.
S S Ongoing
5.1 : Area A: Downtown
Focus on developing residential units in cooperation with development
of a primary public outdoor space, focused on activities such as markets,
movies, skating, or wellness activities.
S L S Short-term
5.2 : Area B:
Restaurant Cluster
Create a new green space that acts as an outdoor gathering destination
and spillover seating for existing and new restaurants. Short-term
redevelopment could occur within existing parking lots surrounding the
green. Long-term redevelopment at Lot 10 to the east of 34th Avenue N.
L C S C Short-term
5.3 : Area C: The
Corridor
Engage with property owner to explore development scenarios that
increase the density of use in the area of the intersection of Plymouth
Boulevard and 37th Avenue N.
S L C Long-term
6 Focus on public-
private partnerships
Develop high level development proformas for the key opportunity sites
to better understand the private sector costs and associated public
incentives should a gap exist, and what may be needed or available to
bridge the gap. Identify key ways to expand the restaurant offerings in
City Center, such as expanded outdoor seating, a food hall concept, and
buildings suitable for additional restaurant use. Explore developing local
grant or loan programs that could assist entrepreneurial growth in the
area’s vintage properties that incentives owners to continue to invest in
these properties. Focus business attraction and retention efforts on the
City Center businesses to respond to expansion opportunities.
L S Short-term
Role & Responsibility Timing
City Partners
Short-term,
Long-term,
Ongoing?Community DevelopmentEconomic DevelopmentParks & RecPublic WorksCity CouncilHennepin CountyProperty OwnersRecommended Actions Description
Action Plan Summary Table, cont’d
01/26/2021 FINAL DRAFT 69
66Plymouth City Center 2.0 a new community vision01/26/2021 FINAL DRAFT 70
Special City
Council
January 26, 2021
Agenda
Number:2.2
To:Dave Callister, City Manager
Prepared by:Sandy Engdahl, City Clerk
Reviewed by:Laurie Hokkanen, Administrative Services Director
Item:Set future Study Sessions
1.Action Requested:
Schedule Study Sessions and/or add topics as desired. Calendars are attached to assist with
scheduling.
2.Background:
Pending Study Session Topics (at least three Council members have approved the following study
items on the list):
None at this time
Other Council requests for Study Session Topics:
None at this time
Staff requests for Study Session Topics:
- Highway 55 BRT and MN/DOT access improvements (suggest June 8 at 5:30 p.m.)
3.Budget Impact:
N/A
4.Attachments:
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