Parker Square Redevelopment Plan

PARKER SQUARE REDEVELOPMENT PLAN

DESIGN TEAM

Capstone Project

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

The capstone project of the Master of Urban and Regional Planning program at the University of Colorado Denver, represents the culmination of what the students have learned throughout the last two years. A MURP Capstone is a real-world, client-based planning project.

Completing a unique, self-directed project gives students the opportunity to demonstrate the skills and knowledge they have gained, integrate and synthesize what they have learned and pursue their individual passions. Working with a real client enables students to apply their creativity and problem-solving abilities in a real-world context and demonstrate their professional competencies to both the faculty and future employers.

JARED PINKUS

CAMERON SAVOIS

Contents Introduction 3

Executive Summary 4 Existing Conditions 5

Community Outreach 13 Analysis 15 Vision

19 Character 21 Recommendations 23

Implementation 37

Next Steps 39

Introduction

CHAPTER 1.0

Introduction

Parker

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

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

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

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and plan for the area with a focus on reinvestment and redevelopment, resulting in a unique destination.

Through place based design, community engagement, as well as regulatory alterations Parker Square has been reimagined into a new place entirely.

The Parker Square development is located on the southeast corner of South Parker Road (SH 83) and East Hilltop Road.

To the north of the site are two underdeveloped pads and a large substation, further hindering future connections to the area. The eastern edge of Parker Square is adjacent to a newer mixed-use development. This area was identified by town staff as having many qualities that would be ideal for the future vision of Parker Square. A medium sized residential development and vacant land are located just south of the site. Developments to the west of the site include many bigbox stores and other national retail and restaurant chains.

Parker Square is located approximately 1/2 mile south of Mainstreet via South Pine Drive. The connection between these two areas was previously studied

by Downtown Colorado Inc. which concluded that due to incompatible land uses and other barriers, these districts should remain separate, requiring each to have stand alone plans.

PARKER SQUARE REDEVELOPMENT PLAN

Executive Summary

Existing Conditions

CHAPTER 2.0

Existing Conditions

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

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

Parker Square is an excellent example of a mature suburban development with out-dated infrastructure, little to no investment, and in need of significant attention. This report will analyze and present the best management practices for the alteration and betterment of the urban condition in Parker Square.

The intention of this document is to present a comprehensive approach and understanding of the identified issues and provide potential innovative solutions.

PARKER SQUARE REDEVELOPMENT PLAN

Context

Existing Conditions

Wide Right of Way and high speeds entering Parker Square

Wide drive aisles, and steep grade trasitions

No sidewalks and curb cut too close to South Parker Road

No sidewalks along Parker Square Drive and exposed stormwater infrastucture

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Grade seperation between buildings and parking

Poor sidewalk conditions and not connected

Vacant lots along Parker Square. Low visiblity of business

Vacant buildings with interesting architecture styles

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PARKER SQUARE REDEVELOPMENT PLAN

Culture + Development

Existing Conditions

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

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

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Commercial

Vacant

Office

Institutional

PARKER SQUARE REDEVELOPMENT PLAN

Culture + Development

Existing Conditions Market Center Design District

Purpose and Goals of the Market Center Standards and Guidelines: 1. To establish a practical, interconnected system of streets, parks and walkways that allows easy orientation and convenient access for all modes of transportation.

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

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

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

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

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

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

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

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

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

Vehicular Infrastructure Improvements

Consolidate access points within the site

Create an internal network of connections

Improve access to the site

Extend Solar Circle to Hilltop Road

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Standard or Guideline

Standard - Site Access

Brief Description

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

Guideline - Site Access

Shared Vehicle Entries Between adjacent lots are strongly encouraged

Standard - Site Access

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

Standard - Site Access

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

Pedestrian Infrastructure Improvements

Construct sidewalks where current gaps exist

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

Standard or Guideline

Brief Description

Standard Pedestrian Access and External Circulation

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

Standard Pedestrian Access and External Circulation

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

Create internal pedestrian Standard - Internal Pedestrian Access paths through and Circulation developments

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

Streetscaping Improvements

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

Standard or Guideline Brief Description

Standard - Site Furnishings

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

PARKER SQUARE REDEVELOPMENT PLAN

Culture + Development

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

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

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

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

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

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PARKER SQUARE REDEVELOPMENT PLAN

Workshop + Preference survey

Analysis

CHAPTER 3.0

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

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

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

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

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

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

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Strengths

Development Opportunities - Existing pads ensure development can take place without removing existing structures.

Local Business (Mix of uses) - Promoting local business will ensure that this district is unique and attractive to the community.

Access - Access to SH 83 and Hilltop Road ensure easy access to high volumes of traffic.

Scenic views - The grand views of the mountains instill a sense of the old west, contributing to the rustic character that is desired by the stakeholders.

Topography - The topography of the site ensures that no bigbox store will be developed here.

Condition of infrastructure - Existing infrastructure is outdated, contributing to hazardous conditions.

Vacancy - Vacancy rates for developments affect surrounding land values and hamper development.

Topography - In some areas the slope limits development and a sense of connection with surrounding uses.

Parking - Excessive parking encourages auto-oriented development and uses.

Limited vegetation - Vegetation on site is primarily limited to private developments and is not ideal for the climate.

Uses and time - Operating hours of majority of uses within Parker Square are limited

Traffic volume along South Parker Drive and Hilltop Road - Both arterials have very high traffic volume, positively affecting land value and development opportunities.

Visibility along arterials - Due to topography, high visibility along SH 83 benefits many developments within the site.

Proximity to Mainstreet - Located less than one mile south of popular Mainstreet Proximity to housing - Surrounding residential subdivisions encourage mixed-uses that are pedestrian friendly.

Proximity to future developments - Existing vacant land to the south ensure that this area will attract more users in the future.

Adjacent arterials - SH 83 and Hilltop Road can be barriers to accessing the site from opposing directions.

Uses to the north - Undeveloped land directly to the north, including the substation, contribute to the disconnect to the area as a whole.

High traffic speeds - High speeds along the adjacent arterials impact access.

Opportunities

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Weaknesses

Threats

PARKER SQUARE REDEVELOPMENT PLAN

SWOT + Analysis Diagram

Analysis

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

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District - A specified area that exhibits a common character. The district in this case refers to the developments north of Solar Circle, east of South Parker Road, South of Hilltop Road and West of South Pine Drive.

Landmark - Common reference points which can be used to explain specific locations. Parker Square has two landmarks those being the "Blue Roof Building" along the southwest corner of South Parker Road and Parker Square Drive, as well as the "Old Police Station" along Parker Square Drive, the focal point of the district. Both of these buildings were common reference points described by town staff, residents and business owners.

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

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

Access - The planning team identified access is a important component for future development within the district. The team understood the difference between node and access in that access was identified as the points in which a user could enter a specific property within the district.

Nodes were identified as access point to the district. Too many access points can be viewed as a hazard to pedestrians, such as the 14 access points identified along Parker Square Drive.

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

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

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

PARKER SQUARE REDEVELOPMENT PLAN

SWOT + Analysis Diagram

Vision

CHAPTER 4.0

Vision

Embrace local business and create a destination for the community. A unique mixed-use, walkable environment will attract more users, increasing Parker Square’s economic and social value. The unique character identified by stakeholders will allow it to be distinguishable from the Town of Parker while fitting with the vision of the area.

Through the creation of a robust public-private partnership, Parker Square will see new development, improved streetscaping, new public space, and improved safety within.

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1. Promote local business.

2. Identify the character and establish a sense of place for Parker Square through urban design elements.

3. Identify catalytic site(S) for development.

4. Encourage and promote investment in the area through

public-private partnerships.

5. Develop internal infrastructure that promotes walkability and

environmental sustainability.

6. Develop internal infrastructure that promotes safety.

7. Develop a compatible and comprehensive plan for land uses

that transitions to the surrounding context and fosters

activity and vibrancy.

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PARKER SQUARE REDEVELOPMENT PLAN

Goals + Objectives

Character Marquee Sign

Welcome to Parker Square

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PARKER SQUARE REDEVELOPMENT PLAN

SIGNAGE + CHARACTER

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

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

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Rocky Mountain Bee Plant

Golden Banner

Spotted Gayfeather

Mountain Muhly

Prairie Dropseed

Switchgrass

Recommendations

CHAPTER 5.0

Recommendations

DESCRIPTION OF USES

The current land use of the Parker Square development consists primarily of mixed-use retail and office. The planning team sees this mixture of uses as consistent with the future development of the area and is in line with the existing regulations.

East Parker Square Drive acts as a buffer between these two uses, with office space to the south and mixed-use retail to the north.

This trend will continue through final build out.

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

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

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

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

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PARKER SQUARE REDEVELOPMENT PLAN

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Recommendations

1-5 Years Infrastructure Improvements The first phase would consist of reconstruction and improvements to existing infrastructure.

• Standardizing Parker Square Drive lane widths.

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

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

• Develop stormwater management system focused on water quality.

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PARKER SQUARE REDEVELOPMENT PLAN

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Recommendations

3-10 Years District Creation and Internal Infrastructure Improvements • Work with stakeholders to establish a special district for the maintenance and creation of new amenities and to encourage a sense of ownership.

• Consolidate access points along Parker Square Drive.

• Develop internal vehicular and pedestrian connections between neighboring developments.

• Standardize drive lane widths.

• Identify areas for active open space.

• Connect Sun Way to Hilltop Road.

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

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PARKER SQUARE REDEVELOPMENT PLAN

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Recommendations

3-20 Years New Investment and Final Build out • Attract new businesses/users to currently vacant buildings retail and office spaces.

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

• Attract new development on existing vacant pads.

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

• Attract develop for newly established parcels.

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

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

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PARKER SQUARE REDEVELOPMENT PLAN

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Recommendations

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AFTER

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PARKER SQUARE REDEVELOPMENT PLAN

BEFORE

Recommendations

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BEFORE

PARKER SQUARE REDEVELOPMENT PLAN

AFTER

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Recommendations

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BEFORE

PARKER SQUARE REDEVELOPMENT PLAN

AFTER

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Implementation Objective

Funding

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

The planning team, in conjunction with the Town of Parker Planning Staff have identified a robust funding strategy for the redevelopment of Parker Square.

This strategy requires support from the community as well as consensus between the stakeholders.

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

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

It is also recommended that a special district be created for the maintenance of the public areas within the site.

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

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Prepared by Progressive Urban Management Associates (www.pumaworldhq.com)

Background/ Summary

Focus

Business Improvement District

Urban Renewal Authority

Special Improvement District

(BID) Quasi-municipal organization

(URA) Established to eliminate

(SID) An assessment district

is a subdivision of the state. All

blighted areas for development

is not a subdivision

property assessed in a BID must

or redevelopment by

of the state, nor is it

be commercial. Boundary may or

purchasing, rehabilitating and

separate from the

may not be contiguous.

selling land for development.

municipality.

Management, Marketing, Advocacy,

Real Estate Development,

Capital Improvements,

Economic Development. (Can issue

Rehab Financing, Infrastructure.

Infrastructure.

Approval by petition of property

Finding of blight; Petition

Need petitions from

owners representing 50%

by 25 electors; Council

property owners who will

of acreage and 50% of value

resolution.

bear at least 50% of the

bonds for capital improvements.)

Formation Steps

Assessment Method Pros/Cons

of proposed district; Council

cost of the improvement;

ordinance; TABOR election.

Ordinance forms district.

Assessment or mil levy on

TIF on property and/or sales tax.

Assessments on Property

Very flexible entity that can

Can generate sales and/or

Equitable: only those who

finance improvements and provide

tax increment to finance future

benefit pay.

commercial property.

services. Can issue bonds.

development.

Difficult to form - requires

Increment needs approval from

election. City constructs

county entities; can be

improvements.

controversial.

Governance

Minimum 5-member board appointed

5 to 11 member commission

by the Mayor or governing body;

appointed by City Council.

Can also be elected.

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City Council

PARKER SQUARE REDEVELOPMENT PLAN

COLORADO SPECIAL FINANCING DISTRICTS

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

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

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

2. There needs to be a discussion with PAR in terms of financing for Phase 1 infrastructure development. What can be financed, how much will the project cost and what is the timeframe 3. the stakeholder leaders need to be identified and be given the responsibility to maintain a relationship with other property or business owners in order to build consensus for future projects as a foundation for the future development of a special district.

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

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

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PARKER SQUARE REDEVELOPMENT PLAN

PARKER SQUARE REDEVELOPMENT PLAN