PIEDMONT

REDEVELOPMENT PLAN

PREPAREDBY: APPROVEDBY:

CityofLincoln,Nebraska PlanningCommission:January8,2014ChrisBeutler,Mayor CityCouncil:January27,2014

UrbanDevelopmentDepartmentDaveLandis,Director

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TABLE OF CONTENTS Introduction.........................................................................................................................1 PlanRequirements...................................................................................................................................................................2

ExistingConditions............................................................................................................4 LandUse.......................................................................................................................................................................................4

Zoning ..........................................................................................................................................................................................5

Parks&RecreationFacilitiesandTrails.........................................................................................................................5

Transportation..........................................................................................................................................................................7

PublicUtilities............................................................................................................................................................................9

HistoricSignificance.............................................................................................................................................................10

Blight&SubstandardDeterminationStudy...............................................................................................................11

IdentifiedIssues.....................................................................................................................................................................13

RedevelopmentPlan......................................................................................................14 LPlan2040:GuidingPrinciples........................................................................................................................................14

PiedmontAreaRedevelopmentActivities..................................................................................................................16

FutureLandUse.....................................................................................................................................................................19

RedevelopmentProcesses.................................................................................................................................................19

EstimatedExpenditures.....................................................................................................................................................20

ConformancewithComprehensivePlan.....................................................................................................................20

Financing...................................................................................................................................................................................20

AppendixA:CostBenefitAnalysis.............................................................................22

LISTOFEXHIBITSExhibit1:RedevelopmentAreawithinCityContext.......................................................................................................1

Exhibit2:ExistingLandUse......................................................................................................................................................4

Exhibit3:ExistingZoning...........................................................................................................................................................5

Exhibit4:Trail,PublicTransportationLines,andParkland........................................................................................6

Exhibit5: OriginalPiedmontPlat,1927............................................................................................................................10

Exhibit6: ProposedSitePlan...............................................................................................................................................17

Exhibit7: FutureLandUse–LPlan2040..........................................................................................................................19

LISTOFTABLESTable1:ExistingLandUse.........................................................................................................................................................4

 

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INTRODUCTION ThePiedmontRedevelopmentPlanisaguideforredevelopmentactivitieswithintheRedevelopmentArea.Exhibit1showsthelocationoftheareawithinthecontextofthecityofLincoln.SouthCotnerBoulevardservesastheeasternboundaryoftheRedevelopmentArea,withCStreetasthenorthboundary,AStreetasthesouthboundary,and50thStreetasthewestboundary.Theareacoversapproximately8.6acresofland,whichisevenlysplitwith4.2acresofcommercialuseand4.4acresofstreetright‐of‐way.Theareaislegallydescribedas:Lots1and2,MarkPlaza,andalladjacentrights‐of‐wayincludingallintersections;alllocatedinSection29‐10‐07,LancasterCounty,Nebraska.

ThePiedmontAutoCarefacilityisatthesouthernportionoftheRedevelopmentArea,butthemainfocusofisthePiedmontShoppingCenter.TheRedevelopmentAreahasshownsignsofdeclineoverthelastfewyears.Builtin1956,theshoppingcenterreceivedmajorimprovementsin1977andsurfaceimprovementsin1997.Theshoppingcenter,whichis49.6%vacant,waspurchasedbyanewbuyerinJune,2013,whoquicklyconvenedseveralmeetingswithneighborhoodresidentstodiscussthefutureofthecenter.IdentifyingtheneedtoredevelopthisarealedtoaBlightandSubstandardDeterminationStudy,whichconfirmedthenumberanddegreeofblightingandsubstandardfactors.TheStudywascompletedinAugust,2013.

TheCityrecognizescontinuingblightanddeteriorationasathreattothestabilityandvitalityofthearea.Revitalizationeffortscannotreasonablyoccurwithoutpublicaction.ThePiedmontRedevelopmentPlanprovidesaguideforthepublicandprivatepartnersasredevelopmenteffortsmoveforward.

Exhibit1:RedevelopmentAreawithinCityContext

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PLAN REQUIREMENTS RedevelopmentactivitiesareguidedbyCommunityDevelopmentLaw,Neb.Rev.Stat.,Section18‐2101,et.seq.(asamended).Thestatutesindicatethegoverningbodymustdeclaretheprojectareasubstandardandblightedinordertopreparearedevelopmentplan.

TheCityhasauthorizeditsUrbanDevelopmentDepartmenttoactastheredevelopmentauthorityunderapplicableLaw.TheUrbanDevelopmentDepartmenthasdevelopedaplanforguidingappropriateprivateandpublicresourcesto:

• eliminateorpreventthedevelopmentorspreadofurbanblight;

• encourageurbanrehabilitation;

• providefortheredevelopmentofsubstandardandblightedareasincludingprovisionforthepreventionofthespreadofblightintoareasofthemunicipalitywhicharefreefromblightthroughdiligentenforcementofhousing,zoning,andoccupancycontrolsandstandards;

• rehabilitationorconservationofsubstandardandblightedareasorportionsthereofbyre‐planning,removingcongestion,providingparks,playgrounds,andotherpublicimprovementsbyencouragingvoluntaryrehabilitationandbycompellingtherepairandrehabilitationofdeterioratedordeterioratingstructures;and

• clearandredevelopsubstandardandblightedareasorportionsthereof.

TheCommunityDevelopmentLawsection18.2111definestheminimumrequirementsofaredevelopmentplanasfollows:

“Aredevelopmentplanshallbesufficientlycompleteto indicate itsrelationshipto definite local objectives as to appropriate landuses, improved traffic, publictransportation, public utilities, recreational and community facilities and otherpublic improvements,andtheproposedlandusesandbuildingrequirementsintheredevelopmentprojectareas...”

Section18.2111alsooutlinessixelementsthatmustbeincludedinallredevelopmentplans:

1. Theboundariesoftheredevelopmentprojectareawithamapshowingtheexistingusesandconditionoftherealpropertyarea;

2. Aland‐useplanshowingproposedusesofthearea;

3. Informationshowingthestandardsofpopulationdensities,landcoverage,andbuildingintensitiesintheareaafterredevelopment;

4. Astatementoftheproposedchanges,ifany,inzoningordinancesormaps,streetlayouts,streetlevelsorgrades,orbuildingcodesandordinances;

5. Asiteplanofthearea;

6. Astatementastothekindandnumberofadditionalpublicfacilitiesorutilities,whichwillberequiredtosupportthenewlandusesintheareaafterredevelopment.

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Inmakingtherecommendationtoapprovethisplan,theUrbanDevelopmentDepartmenthasconsideredthelandusesandbuildingrequirementsofthePiedmontRedevelopmentArea;generallylocatednorthofS.CotnerBoulevard,southofCStreet,eastofN.50thStreetandwestofAldrichRoad;anddeterminedtheyareinconformancewiththegeneralplanforredevelopmentinthecityandrepresentacoordinated,adjusted,andharmoniousdevelopmentofthecityanditsenvirons.

Thesedeterminationsareinaccordancewith:• presentandfutureneedstopromotehealth,safety,morals,order,convenience,

prosperity;• thegeneralwelfare;and• efficiencyandeconomyintheprocessofdevelopment.

Factorsconsideredinthedeterminationincludedamongotherthings:• adequateprovisionfortraffic,vehicularparking;• promotionoffiresafetyandpreventionofotherdangers;• adequateprovisionforlightandair;• promotionofthehealthfulandconvenientdistributionofpopulation;• provisionofadequatetransportation,water,sewerage,andotherpublicutilities;• schools,parks,recreationalandcommunityfacilities,andotherpublicrequirements;• promotionofsounddesignandarrangement;• efficientexpenditureofpublicfunds;and• preventionofinsanitaryorunsafedwellingaccommodationsorconditionsofblight.

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EXISTINGCONDITIONSLandUseThePiedmontRedevelopmentAreaconsistsof8.6acresofland.Theareaissplitevenlywith4.2acresofcommercialuseand4.4acresofstreetright‐of‐way.ThePiedmontShopsaretheprimarypropertieswithintheRedevelopmentArea.ThemainarterialstreetisS.CotnerBoulevard,whichservesastheeasternboundaryoftheRedevelopmentArea.CStreetisthenorthboundaryand50thStreetservesasthewestboundary.

Residentiallanduseexiststotheeast,west,andnorthoftheRedevelopmentArea.SouthoftheRedevelopmentAreaisBryanHealthMedicalCenter’sEastCampus.

Table1:PiedmontRedevelopmentArea–ExistingLandUse

Commercial 4.2Acres 48.8%

StreetRight‐of‐Way 4.4Acres 51.2%

TotalArea 8.6Acres 100%

Exhibit2:CurrentLandUse

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ZoningAmajorportionoftheRedevelopmentAreawasrecentlyre‐zonedasB‐3PlannedUnitDevelopment.Thiszoningdesignationprovidesforlocalcommercialusesinestablishedretailcentersofredevelopingneighborhoods.

ThesouthernportionoftheRedevelopmentAreacontinuestobezonedB‐1.Thiszoningclassificationisappropriatefortheexistinglanduseandisintendedtoprovideastableareaoflocalretailrelatingtoexistingcommunitiesandexistingneighborhoods.Itprovidesforfunctionalbusinessusestoservethosecommunitiesandneighborhoods.Dwellingsarepermittedonlyabovethefirstfloor.

ParksandRecreationalFacilitiesandTrails

• Trails

TherearenodedicatedbiketrailsdirectlyintheRedevelopmentArea.EastoftheRedevelopmentAreaat52ndStreetandwestoftheareaat44thStreet,thereareon‐streetbikeroutesthatrunnorth‐south.Also,approximatelyfiveblockssouthoftheRedevelopmentAreaandjustsouthoftheBryanHealthMedicalCenterthereisaneast‐west,on‐streetbikeroute.

Exhibit3:Zoning

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Exhibit4:Trails,PublicTransportationLinesandParkland

No Rail lines or Trails in or near the Redevelopment Area 

Bryan Health Medical Center

Lefler Middle School 

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• Parks

PiedmontParkisanineacreparklocatedat50th&CStreets,acrossthestreetfromthePiedmontShoppingCenter.Theparkhastwotenniscourtsandisanopenareausedforsoccerandotheroutdoorrecreation.

KontrasPark,locatedacrossCotnerBoulevardtotheeastatCotnerBoulevardandAldrichRoad,isa1.12acrepocketparkthatfeaturesashadestructurewithbenchesandenhancedlandscaping.Artworkisalsopartofthelandscapefeaturesofthepark

Transportation

• Traffic

CotnerBoulevardisatwo‐wayarterialstreetwithacenterturnlaneandtheprimarystreetthatservesthePiedmontRedevelopmentArea.AverageDailyTrips(ADT)countsonCotnerBoulevardareapproximately6,530vehicles,accordingtoCityofLincolnPublicWorkstrafficcountsfor2010.Thewestboundaryoftheareais50thStreet,whichisclassifiedasalocal/neighborhoodstreet,asisthenorthboundary,CStreet.AStreet,justsouthoftheRedevelopmentAreaisanarterial,withanADTofapproximately11,000vehicles.TheonlytrafficsignalisatAStreetandCotnerBoulevard.

• AccessandParkingIssues

FromtheRedevelopmentArea,therearetwoaccesspointstoCotnerBoulevardandoneaccessto50thStreet,butthereisnoaccesstoCStreet.On‐streetparkingisallowedon50thStreetandCStreetinadditiontothe199parkingstallsinPiedmontShoppingCenterparkinglot.

OneoftwoaccesspointstoCotnerBoulevardfromtheRedevelopmentArea

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However,thereisnodirectandsafepedestrianmovementfromCotnerBoulevardorAStreettothePiedmontShops.

• PublicTransportation

ThePiedmontRedevelopmentAreaisservedbybusroute#43Normal(seeExhibit4),whichtravelson48thStreetto/fromSouthStreettoRandolphStreet.The#40HeartHospitalrouteisafewblockssouthofthePiedmontshoppingarea;theclosestitcomestotheareais48th&SumnerStreets.

• StreetConditions

TheRedevelopmentAreafrontstwostreetsthatwereratedin“fair”conditionintheBlightandSubstandardDeterminationStudy.BothCotnerBoulevardand50thStreethaveasphaltsurfacingwithsignificantcracking,settling,anderodededges.Thecurbandguttersadjacenttothestreetswereratedin“poor”condition.

• SidewalkandPedestrianActivity

Theonlyexistingstandard‐widthsidewalkwithintheRedevelopmentAreaislocatedalongthenorthsideofCStreet.Narrow,at‐curbsidewalksalongCotnerBoulevardandAldrichStreetputpedestriansatrisk.TheissueiscompoundedbythenumberofchildrenwalkingtoLeflerMiddleSchool,whichislocatedjustnorthwestoftheRedevelopmentArea.TheprivatesidewalkswhichservethePiedmontShopsarecracked,settledanddangerous.

Narrow,at‐curbsidewalksalongCotner&Aldrichputpedestriansatrisk

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StreetLayout

TheintersectionwherethediagonalportionofCotnerBoulevardmeetsbothAStreetand50thStreetisatraffichazardsincethiselongatedintersectionhasthreestreetsintersectingatthesamelocation.Trafficconcernsarecompoundedbythepotentialofspeedingvehiclesthatimpactthesafetyofpedestrianscrossingmultiplelanesoftraffic.TheexistingstreetlayoutcanbeaproblemforthefirestationlocatedacrossCotnerBoulevardtotheeastoftheRedevelopmentArea.

• Streetscape

TherearenostreetscapeamenitieswithintheRedevelopmentArea.Animplementedstreetscapeplanaspartoffutureredevelopmentwouldbenefittheneighborhood.

PublicUtilities

• WaterSystem

Thewatermainon50thStreetwasinstalledin1946andhasexperiencedrepeatedbreaks.Itisscheduledforreplacementwithinthenextfiveyears

• SanitarySewerSystem

VitrifiedclaypipesewermainswereinstalledintheRedevelopmentAreain1920.Whileadequatelysizedforthearea,vitrifiedclayisnolongerusedforsewermains.Thesesewermainsshouldbelinedwithapolyvinylchloride(PVC)“innersleeve”inthenearfutureorreplacedaltogether.

• WatershedManagement

ThePiedmontRedevelopmentAreaislocatedwithintheAntelopeCreekWatershed.Thereareapproximately90acresofprimarilyresidentialdevelopmentthatcontributedrainagemostlyfromthenorthandnortheast.StormwaterrunoffflowsoverlanduntilitiscollectedbyaseriesofinletsandconveyedthroughanenclosedstormdrainsysteminasouthwesterlydirectionalongCotnerBoulevard.ThisstormsewersystemeventuallydischargestoAntelopeCreekatCotnerBoulevard,southofNormalBoulevard.TherearenoknownfloodplainsorwetlandswithintheRedevelopmentArea.

WithintheRedevelopmentArea,thepointofgreatestelevationisnearS.50th&CStreets.Fromhere,themajorityofstormwaterrunoffentersthestormdrainsystemanddrainseastalongCStreet,thensouthalongAldrichRoadforashortsegment,andfinallysouthintoa48"RCPstormsewertrunklineinCotnerBoulevard.ThetopographywithintheprivatecommercialareagenerallyslopestothesouthcausingthemajorityofrainfalltorunofftothesouthuntilenteringthepublicsystemthroughaseriesofcurbinletsalongCotnerBoulevard.Aportionofthestormsewerrunoffmayalsoflowinto,andthrough,anexistingprivatesystembeforetappingintothepublicsystem.

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Apreliminaryengineeringstudyevaluatedthisdrainagebasinin2008andfoundtheretobeseveralstormsewerpipesthataredeficientduetotheirinadequatesize.Thedeficientpipes(locatedinCStreet,AldrichRoad,andCotnerBoulevard)donotconveyenoughstormwatertomeetCityDesignStandardsandtheymaycontributetoincreasedpotentialforpondinginthestreetrightofway.

ACapitalImprovementProject(CIP#AC10‐01)hasbeenidentifiedtoreplacedeficientpipesandinletsalongCotnerBoulevard,generallyfromjustnorthofAStreet,toFranklinStreet.ThisCIPprojectisnotcurrentlyscheduledtooccurinthenearfutureduetoitsrelativelowpriorityscorecomparedtootherstormsewerprojects.

• StreetLighting

Thestreetlightson50thStreetareonwooddistributionpolesandfedwithoverheadwireandareconsideredtobeingoodcondition(installedin1988).ThestreetlightsonCotnerBoulevardareonsteelpolesfedwithundergroundwireandareinfaircondition(installed1975),andthestreetlightsonAldrichStreet,onsteelpolesfedwithundergroundwire,areinfaircondition(installedin1976).

HistoricSignificanceThePiedmontsubdivisionwasplattedin1927bytheStuartInvestmentCompany(CharlesStuart,President).ThatwasthesameyearCharlesStuartbuilttheStuartBuildingat13th&PStreetsdowntown.

Asawhole,Piedmontisaresidentialsectioncharacterizedbylargelots,largehouses,andagradualpatternofdevelopmentsothatbuildingstylesfrommostdecadesofthe20thcenturyarewell‐represented.

Whiletheoverallplanisgenerallyanextensionofthegridplanoftheoriginalcity,CotnerBoulevardcreatesastrongdiagonalfromNEtoSWacrossthesubdivision,andadditionaldiagonalentrypointswereplannedattheNWandSEcorners,aswellasnearthecenterofthesouth(AStreet)boundary.Theresultisanintroductionofconsiderablevarietyinthesizesandshapesoflots,andaratherhighdegreeofvariationalongthestreetsofwhatisgenerallyagridplan.Thereisalsojustoneeast‐weststreetextendingallthewaythroughthesubdivision(labeledasEStreet,nowcalledValleyRoad),creatinganorth‐southorientationto

Exhibit5:OriginalPiedmontPlat,1927

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thesubdivisionasawholeandaratherinsularqualitytothearea,heightenedbythelaterclosureoftheSEdiagonalentrancefromthebusy56th&Aintersection.

Piedmont’soriginaldeedsalsocovenantedtoStuartInvestmentCo.rightstoapprovebuildingdesignsanddecreedaratheruniquemethodoflocatinghousesontheirparcels.Ratherthanspecifyingsetbacksorspecificyardrequirements,theoriginalcovenantsrequiredthatthe“deadcenter”ofthehousebelocatedwithin15feetofthe“deadcenter”ofthelot.Theeffectistolocateeachhouserelativetoitsownparcel,ratherthantoafixedfrontyardline,creatingadegreeofirregularityasthestreetscurveandthelotdimensionsvary,andcreatingdeepfrontyards.Thecovenantsfurtherrequiredthatthosefrontyardsbemaintainedsolelyaslawns,andthat“noweeds,underbrush,orotherunsightlygrowthsshallbepermittedtogroworremainanywhereuponsaidpremises.”

StuartInvestment’soriginalcovenantsalsoincludedracerestrictions,stating“FortheperiodoffiftyyearsfromthedateofthisdeednopersonofotherthantheCaucasianrace,shallbeorbecomethegranteeorlesseeofsaidproperty,or,exceptasaservantinthefamilylivingthereon,begrantedtheprivilegeofoccupyingthesame.”SimilarrestrictionswerefirstimposedintheSheridanParkareain1916byHarveyRathboneandhadbecomecommoninLincolnby1927,althoughsomesimilarlyprestigioussubdivisions,suchasWoodshire,didnotusethem.TheLincolnCityGuidebytheWPA’sFederalWriters’Project,issuedin1937,describedPiedmontas“oneofthenewestandmostexclusiveoftheresidentialdistricts.Fromthethreemainentrances,eachflankedbypillars,theboulevardswindbetweenrowsofelmandlocusttrees,acrosshilly,severelylandscapedcountry.Thehousesarefarapart,variedinstyle.Street‐lightglobesarelantern‐shaped.”Onlyoneofthemonumentalentrancetreatmentsremains,attheNWcornerwhereFallCreekRoadentersoffRandolphStreet.

Anotheraspectofthesubdivisionwastoleavethreeblocks—14,15,and16—aswholeblocks,notsplitintosmallerlots.Blocks15and16becameparklandasPiedmontParkandKontrasPark,respectively.Thethirdblock(originallyBlock14)boundedbyCotnerBoulevardandAldrichRoad(formerly52ndStreet)ontheeast,CStreetonthenorth,and50thStreetonthewest,begantobedevelopedin1949withtheconstructionoftheautomotiveservicestationatthesouthernendofthesite.Thefirststoreswereaddedin1952,designedbyS.A.SolheimanddevelopedbySunshineHomes,Inc.Constructioncontinuedincrementallythroughabout1966,witharchitecturalservicesprovidedbyRobertB.Gibbbeginningin1961.Asbuilt‐out,theL‐shapedplanlinesthenorthandwestedgesofthetriangularparcelwithshops,facingalargeparkingareaalongCotnerBoulevard.

 Blight&SubstandardDeterminationStudyForaprojecttobeconsideredeligibleforredevelopmentinLincoln,theareamustqualifyasboth“Blighted”and“Substandard”basedonNebraskaCommunityDevelopmentLaw.

ThePiedmontRedevelopmentAreaBlightedandSubstandardDeterminationStudywasundertakentodeterminewhetherexistingconditionswarrantdesignationoftheareaas

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blightedandsubstandard.ThestudyincludesformalinvestigationoftheexistenceandextentofblightingandsubstandardfactorsasoutlinedintheNebraskaCommunityDevelopmentLaw.

• Process

Theconsultant’sevaluationincludedadetailedexteriorstructuralsurveyofthePiedmontShops.Threemajorstructuresreceivedexteriorinspections,includingtheservicestationandtwostrip‐mallstructures.Inaddition,aparcel‐by‐parcelfieldsurveywasconductedandresearchonownershipandfinancialassessmentofpropertieswasconducted,includingpublicrecordresearchtodetermineiftaxdelinquenciesexistedinthePiedmontRedevelopmentArea.

• AnalysisFindings

AllfourofthesubstandardfactorsidentifiedinNebraskaCommunityDevelopmentlawrepresenta“strongpresence”intheRedevelopmentArea.Thefactorsdeterminedtohavea“strongpresence”are:

o Dilapidated/deterioration.Thethreemajorstructuresinspectedwereidentifiedasdeterioratingwithmajordefects.

o Ageorobsolescence.Twoofthethreemajorstructureswerebuiltover40yearsago(priorto1973).

o Inadequateprovisionforventilation,light,air,sanitationoropenspaces.Amajorityofthewatermainsareover60yearsofage.Thewatermainalong50thStreetwasbuiltin1946,hashadrepeatedbreaks,andwillbereplacedwithinthenextfiveyears.Thesewermainsareapproximately93yearsofageandmadeofoutmodedmaterials.Theageoftheseutilitiesmayrequiremorefrequentmaintenanceand/orreplacement.Masonrybuildingswithcombustiblewoodenstructuralelementswerefoundtobedeterioratingtoa“major”extentandinneedofstructuralrepairandfireprotection.

o Existenceofconditionswhichendangerlifeorpropertybyfireorothercauses.

Sevenofthe12blightfactorsidentifiedinNebraskaCommunityDevelopmentLawwerepresentwitha“strongpresence”andtwowerepresenttoa“reasonablepresence”extent.Theblightfactorsdeterminedtohavea“strongpresence”are:

o Substantialnumberofdeterioratedordilapidatedstructures.

o Existenceofdefectiveorinadequatestreetlayout.

o Insanitaryorunsafeconditions.

o Deteriorationofsiteorotherimprovements.

o Existenceofconditionswhichendangerlifeorpropertybyfireorothercauses.

o Otherenvironmentalandblightingfactors.

o Additionalblightingconditions:averageageoftheresidentialorcommercialunitsintheareaisatleastfortyyears.

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Theblightfactorsdeterminedtohavea“reasonablepresence”are:

o Faultylotlayoutinrelationtosize,adequacy,accessibilityorusefulness.

o Impropersubdivisionorobsoleteplatting.

IdentifiedIssuesBasedonthereviewofexistingconditions,thefollowingissuesandconcernswereidentifiedandshouldbeconsideredinconjunctionwiththeGuidingPrinciplesofthisdocumenttoprovideaframeworkfordeterminingprojectsinthePiedmontRedevelopmentPlan.

ThethreestreetintersectionofAStreet,50thStreetandCotnerBoulevardisatraffichazardanddangeroustopedestrianscrossingthestreet.

LackofmunicipalsidewalksintheRedevelopmentArea.SidewalkswithintheRedevelopmentAreaareinpoorcondition.Curbsandguttersareinpoorcondition.

AccesspointstothePiedmontShopsareinsubstandardcondition.Rearaccessdrivesalong50thStreetandloadingdocksaresubstantiallydeteriorated.

Watermainalong50thStreetis60+yearsofage.Sewermainsare90+yearsofage.

LackofstreetscapealongtheRedevelopmentAreaboundary.

Below:ImagefromBlight&SubstandardDeterminationStudy:Deteriorationofloadingdocks

Above:ImagefromBlight&SubstandardDeterminationStudy:Unsafeconditions 

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REDEVELOPMENTPLAN LPlan2040:GuidingPrinciplesLPlan2040istheLincoln‐LancasterCounty2040ComprehensivePlan.ThePlanembodiesLincolnandLancasterCounty’ssharedvisionforthefuture,totheyear2040.Itoutlineswhere,howandwhenthecommunityintendstogrow,howtopreserveandenhancethethingsthatmakeLincolnspecial,andstrategiesforimplementingthevisionforhowwewilllive,work,playandgetaroundinthefuture.

TherelevantprincipleslistedbelowaretakendirectlyfromLPlan2040andwillbeusedasaguideforredevelopmentactivitiesincombinationwiththeconcernsidentifiedinprevioussectionsofthePiedmontRedevelopmentPlan.

Business&Economy Focusprimarilyonretentionandexpansionofexistingbusinesses;attractingnew

businessshouldalsobeencouraged.

Seektoefficientlyutilizeinvestmentsinexistingandfuturepublicinfrastructuretoadvanceeconomy.

Striveforpredictabilityforneighborhoodsanddevelopers.

Encouragecommercialareasandlimitedindustrialareastomakeavailableopportunitiesforindividualsand/ororganizationstoraiseandmarketlocalfood.

Encouragepreservationorrestorationofnaturalresourceswithinoradjacenttocommercialorindustrialdevelopment.

Encouragecommercialcenterstoencompassabroadrangeoflanduseswiththeintegrationofcompatiblelandusetypes.

Mixed‐UseRedevelopment Targetexistingunderdevelopedorredevelopingcommercialandindustrialareasin

ordertoremoveblightedconditionsandmoreefficientlyutilizeexistinginfrastructure.

Belocatedanddesignedinamannercompatiblewithexistingorplannedlanduses.

Encouragesubstantialconnectivityandconvenientaccesstoneighborhoodservice(schools,parks,stores)fromnearbyresidentialareas.

Helptocreateneighborhoodsthatincludehomes,stores,workplaces,schoolsandplacestorecreate.

Encourageresidentialmixed‐useforidentifiedcorridorsandredevelopingRegional,Community,Neighborhood,andMixed‐UseOfficeEntersidentifiedasnodes.

Mixed‐useredevelopmentnodesandcorridorsshouldstrivetolocate:

o Wherethereisexistingpotentialforgoodaccesstotransit,toenhancethepublictransitsystembymakingitaccessibletoresidentsandtofacilitatedevelopmentof

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neighborhoodmultimodalhubswhereresidentscandrive,bike,orwalktoatransitstop,gotowork,andthenshopfortheirdailyneedsbeforetheyreturnhome.

o Onatleastonearterialstreettohelpprovidefortrafficandutilitycapacityandaccesstotransit.

Neighborhoods&Housing Encouragepublicinvestmentinneighborhoodinfrastructureandservicessuchasparks,

pools,libraries,andneighborhoodbusinessdistricts.

Promotesustainabilityandresourceconservationbypreservingandimprovinghousinginexistingneighborhoods.

Provideflexibilitytothemarketplaceinsitingfutureresidentialdevelopmentlocations.

Striveforpredictabilityforneighborhoodsanddevelopersforresidentialdevelopmentandredevelopment.

StrategiesforRedevelopmentinExistingNeighborhoods

o Maintainandenhanceinfrastructureandservicesinexistingneighborhoods.

o Preserve,protectandpromotethecharacteranduniquefeaturesofurbanneighborhoods,includingtheirhistoricalandarchitecturalelements.

DetailedStrategiesforRedevelopmentofExistingNeighborhoods

o Encourageamixofcompatiblelandusesinneighborhoods

Similarusesonthesameblockface.

Similarhousingtypesfaceeachother.

Commercialparkinglotsshouldnotintrudeintoresidentialareaswhereresidentialusespre‐dominateablockface.

o Encouragepedestrianorientationwithparkingatrearofresidentialandneighborhoodcommercialuses.

o Redevelopmentandinfillshouldstriveforcompatibilitywiththecharacteroftheneighborhoodandadjacentuses(i.e.parkingatrear,similarsetback,heightandlanduse).

o Maintainsmallparksandopenspacewithinwalkingdistanceofallresidences.

o Encouragesharedparkingwheneverpossible–permitminorincursionsofaccessoryparkingforpublic/semi‐publicusesintoneighborhoodsifproperlyscreened.

o Maintainexistingpatternofstreetsforconnectivity.

o Maintainarterialstreetsthatarecompatiblewiththeexistingneighborhoodcharacterwithtwothroughlanesandacenterturnlanewhereapplicable.

o Utilizestreetsforcommercialandresidentialparking.

o Encouragealleyaccessandshareddrivewaystoparkingareasinordertoreduceinterruptionstopedestriantraffic,topreserveon‐streetparkingcapacity,andtoreduceautomobileconflictpoints.

o Supportthepreservationandrestorationofnaturalresources.

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Parks,Recreation,andOpenSpace

Parksandopenspaceenhancethequalityoflifeofthecommunity’sresidentsandarecentraltothecommunity’seconomicdevelopmentstrategy–thecommunity’sabilitytoattractandretainviablebusinesses,industries,andemployeesisdirectlylinkedtoqualityoflifeissues,includingindoorandoutdoorrecreationalopportunities.

Neighborhoodparksareapproximatelyfourtosixacressitesthatarecentrallylocatedwithinareasofresidentialdevelopment.Typicalactivityareasincludeplaygroundequipment,openlawnareasforinformalgamesandactivitiesorplaycourtswithasinglebasketballfoalforinformalgames,shadedseatingandwalkingpaths.

StrategiesforNeighborhoodParks

o LocateNeighborhoodParksclosetothecenterofresidentialareasandwithinwalkingdistanceofamajorityofresidents;parksitesshouldbereadilyaccessiblebypedestriansandbicyclists.

o LocateNeighborhoodParksadjacenttogreenwaylinkageswherepossible.

o Locateparksiteswhereresidentslivinginsurroundinghomes,peopleinpassingvehicles,orpedestrianscanviewactivitiesintheparktoprovideforinformalsupervision.

PiedmontAreaRedevelopmentActivities PublicImprovements

SomeoftheinfrastructureconcernsthatwereidentifiedintheblightandsubstandardstudywillbeaddressedaspartoftheredevelopmentactivitiesforthePiedmontShops.Theseincludecurbandgutter,sidewalks,landscaping,plumbingandsewageandelectrical.

PrivateImprovements

PiedmontShops

Locatedat1265CotnerBoulevard,ThePiedmontShoppingCenterwasoneofthefirstshoppingcentersinLincoln.Builtin1956,itreceivedmajorenhancementsin1977andafaceliftin1997.TheproposedPiedmontShopsprojectincludestheredevelopmentandrestorationofthecenter.Thereisapproximately51,000squarefeetofbuildingspace,whichiscurrently45percentoccupied.Therehasbeenalackofresourcesavailableforimprovementstothispropertyoverthepast17years.Thenewpropertyownerwantstomakeimprovementstothecenterandmakethisanattractableassettotheneighborhoodandthecommunity.Itistheowner'sintenttomakethePiedmontShoppingCenteranexcitinggatheringplace.

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Keyelementsoftheredevelopmentprojectinclude:

Updatethestonefaçadewiththreebuild‐outsthatcomeawayfromthebuildingandextendabovetherooflineforsignage‐thiswilladddimensiontothebuilding.Blackawningswillbeinterspersedtogiveahistoricalflavor;

Signagewillbeplacedonthenewfaçadeabovetheentrywaysofeachbusiness;

Electronicsignagereplacingthecurrentmonumentsignage;

Exhibit6:ProposedSitePlan

NORTH 

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Eliminatetheparkingstallsadjacenttothebuildingsandwidentheexistingsidewalksto12feettoprovideapedestrianwalkwayaroundtheperimeterofthebuilding;

Provideaboulevardconceptintheparkinglotthatisbetween12and15feetwidewithfourseatingareas,plantersandboulevardlighting;

Beautification/improvementofstreetscapeandlandscaping;

Includeplantingareasthroughouttheentirefacilityandprovidebenches;

Parkinglotimprovementswithatotalof197parkingstalls;remove3or4existingparkingstallstoincreaselandscapingandallowforboulevardspace.Thecornerstallswillbeusedforlandscapingareas;

Painting,clean‐upandrepairsofthebuildinginterior;

Considerclosing50thStreetandmakingacul‐de‐sactoeliminateintersectionissues;

Thecenterwillconsistofexistingandproposedtenants.Withfourrestaurantsbeingproposed,considerationisbeinggivenastoindividualtrafficpatternsandthepeakbusinesshoursofeachaswellastheparkingneedsoftheothertenants.

PiedmontAutoCareTheownershavenospecificplansofredevelopmentatthistime,butareawareoftheredevelopmentplanandprocess.

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FutureLandUseExhibit7showsthefuturelandusefortheareaasproposedbyLPlan2040.TheproposedRedevelopmentAreaactivitieswillnotchangetheoveralldensityofthearea.RedevelopmentProcessPublicimprovementsandredevelopmentactivitiesmayrequireconstructioneasements;vacationofstreetandalleyright‐of‐way;temporaryandpermanentrelocationofbusinessesandresidences;demolition;disposal/saleofproperty;sitepreparation(mayincludedrivewayeasements;pavingdriveways,approachesandsidewalksoutsidepropertylines;relocationofoverheadutilitylines;andrerouting/upgradingofundergroundutilitiesasneeded).Theprocessfortheseactivitiesincludesthefollowing:

PropertyAcquisition.TheCitymayacquirethenecessaryfees,easements,propertyandcovenantsthroughvoluntarynegotiations(SeeLandAcquisitionPolicyStatement,onfileattheUrbanDevelopmentDepartmentandavailableonrequest).Ifvoluntaryagreementisnotpossible,theCitymayinstituteeminentdomainproceedings.

Relocation.Relocationmayinvolvethetemporaryorpermanentrelocationoffamilies,individuals,orbusinessestocompleteredevelopmentactivities.Relocationwillbecompletedaccordingtolocal,state,andfederalrelocationregulations(seeRelocationAssistance,onfileattheUrbanDevelopmentDepartmentandavailableonrequest).

Demolition.Demolitionwillincludeclearingsitesonpropertyproposedforpublicimprovements;necessarycapping,removalorreplacingutilities;sitepreparation;securinginsuranceandbonds;andtakingothernecessarymeasurestoprotectcitizens

Exhibit7:FutureLandUse‐LPlan2040

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andsurroundproperties.Measurestomitigateenvironmentalfindingsmayalsobenecessaryifdeterminedbysitetesting.

Disposal/Disposition.Futuresub‐areaprojectsmayincludethesaleoflandtoprivatedevelopersforredevelopmentpurposes.Developerswillbeselectedinanequitable,open,andcompetitiveproposalprocessaccordingtoCityrequirements.

RequestsforProposals.ArchitectsandengineerswillfollowtheCity’sstandardselectionprocessftpdesignpublicfacilitiesandimprovements.Primarycontractorsforpublicfacilitiesandimprovementswillalsobecompetitivelyselected.

EstimatedExpendituresThepreliminaryestimateforprivateinvestmentisapproximately$4.7million.Moredetailedcostswillbeestimatedwhendesigniscompleted.PublicimprovementswillbeconstructedusingTaxIncrementFinancing(TIF)fundsgeneratedfromprivatedevelopment.SeeAppendixAforapreliminarycostbenefitanalysis.

ConformancewithComprehensivePlanLPlan2040,theLincoln‐LancasterCountyComprehensivePlan,adoptedOctober,2011,asamended,representsthelocalgoals,objectives,andpoliciesoftheCityofLincoln.ThePiedmontRedevelopmentPlanwasdevelopedtobeconsistentwiththeLPlan2040.

FinancingTheprimaryburdenforrevitalizationoftheRedevelopmentAreamustbeontheprivatesector.TheCitymustprovidepublicservicesandpublicimprovementsandparticipatewherenecessaryintheredevelopmentprocess,buttheneedsoftheareaarebeyondtheCity’scapacitytodoalone.Financingofproposedimprovementswillrequireparticipationbyboththeprivateandpublicsectors.Whereappropriate,theCitymayparticipatebyprovidingfinancialassistancefortherehabilitationofstructures.

Sourcesoffundingmayinclude: SpecialAssessments–BusinessImprovementDistricts PrivateContributions SaleofLand(Proceedsfromthesaleoflandacquiredforredevelopment,asidentifiedin

theRedevelopmentPan,shallbereinvestedintheRedevelopmentArea) MunicipalInfrastructureRedevelopmentFund(MURF) CommunityDevelopmentBlockGrantFunds(CDBG) HomeInvestmentPartnershipAct(HOME) HUDSection108LoanProgram CommunityImprovement(TaxIncrement)Financing(AdValoremTax) CapitalImprovementsProgramBudget FederalandStateGrants InterestIncome AdvanceLandAcquisitionFund–propertyrights/easements,publicfacilitysite

acquisition ImpactFees

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ProjectactivitieswillbeundertakensubjecttothelimitandsourceoffundingauthorizedandapprovedbytheMayorandCityCouncil.

AccordingtotheCommunityDevelopmentLaw,anyadvaloremtaxlevieduponrealpropertyintheredevelopmentprojectforthebenefitofanypublicbodyshallbedivided,foraperiodnottoexceed15yearsaftertheeffectivedateofsuchprovision,bythegoverningbodyasfollows:

Thatportionoftheadvaloremtaxwhich isproducedbythe levyattheratefixedeachyearbyorforeachsuchpublicbodyupontheredevelopmentprojectvaluationshallbepaidintothefundsofeachsuchpublicbodyinthesameproportionasareallothertaxescollectedbyorforthebody;and

Thatportionoftheadvaloremtaxonrealpropertyintheredevelopmentprojectinsuchamount, ifany, shallbeallocated toand,whencollected,paid intoa specialfundoftheauthoritytobeusedsolelytopaytheprincipalof,the intereston,andany premiums due in connection with the bonds of loan, of money to, orindebtednessincurredby,whetherfunded,refunded,assumed,orotherwise,priorityforfinancingorrefinancing,inwholeorinpart,theredevelopmentproject.

When such bonds, loans, notes, advances of money, or indebtedness, includinginterestandpremiumsdue,havebeenpaid,theauthorityshallsonotifythecountyassessorandcountrytreasurerandalladvaloremtaxesupontaxablerealpropertyinsucharedevelopmentprojectshallbepaidintothefundsoftherespectivepublicbodies.

TheeffectivedatefortheCommunityImprovementFinancingforeachRedevelopmentProjectshallbeidentifiedintheprojectredevelopmentcontractorintheresolutionoftheauthorityauthorizingtheissuanceofbondspursuanttoNeb.Rev.Stat.Section18‐2124.

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APPENDIXA:COSTBENEFITANALYSIS NebraskaCommunityDevelopmentLaw(NERes.Stat#18‐2147)requiresthecompletionofacostbenefitanalysisforredevelopmentprojects.TheCity’sLawDepartmenthasinterpretedtherequirementtomeanthattheanalysismustbecompletedinconjunctionwiththeRedevelopmentPlan.Sinceprojectsarenotfullydeveloped,theanalysiswillbecursory;however,moredetailedanalyseswillbecompletedasprojectsdevelopandwillbebroughtbeforetheCityCouncilinconjunctionwithredevelopmentagreementswhenneeded.

PiedmontShoppingCenterProjectThePiedmontShoppingCenterProjectwillredeveloptheapproximatelyfour(4)acreslocatedgenerallyat1265SouthCotnerBoulevard,Lincoln,Nebraska,inthePiedmontRedevelopmentArea.TheshoppingcenterwasthefirstofitskindinLincolnandwasbuiltin1956.Thenewimprovementsincludenewentries,theuseofstuccoandstonetoenhancetheexistinglimestonefaçade.Alsoplannedarenewawnings,landscaping,stampedconcretepatios,fencing,stonepillarsandnewlightpoles.Thetotalcostofconstructionisestimatedatapproximately$4,700,000.

AsrequiredbyNebraskaCommunityDevelopmentLaw(Neb.Rev.Stat.§18‐2113),theCityhasanalyzedthecostsandbenefitsoftheproposedPiedmontShoppingCenterProjectincluding:

BaseValue $2,150,700 (2013AssessedValue)

EstimatedNewAssessedValue $6,000,000

IncrementValue $3,849,300

TIFTaxGenerated $77,780

Bond/NoteIssue $757,750

FundsAvailable $757,750

TaxRevenues:TaxIncrementFinancingAnalysisUponcompletionoftheProject,theassessedvalueofthepropertywithintheprojectareawillincreasebyanestimated$3,849,300asaresultoftheprivateinvestment.Thiswillresultinanestimatedannualincreaseofapproximately$77,780inpropertytaxcollectionsthatwillbeavailablefortheconstructionofpublicimprovementsrelatedtotheprojectduringthe15yearTIFperiod.Thepublicinvestmentofaprojected$757,750inTIFfundswillleverage$4,700,000inprivatesectorfinancing,resultinginaprivateinvestmentofmorethan$6.20foreveryCityTIFdollarspent.

PublicInfrastructureandCommunityPublicServiceNeedsImpactsItisnotanticipatedthattheProjectwillhaveanadverseimpactonexistingpublicinfrastructure.TaxIncrementFinancingtowardtheprojectwillresultinnewsidewalksalongSouthCotnerBoulevardandAldrichStreet,façadeimprovements,andothereligibleimprovements.

ItisnotanticipatedthattheProjectwillhaveanyadverseimpactonCityservices,butwillgenerateadditionalrevenueprovidingsupportforthoseservices.

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EmploymentwithintheProjectAreaTheProjectwillcreateapproximately50newFTEjobsinLincoln.TheProjectwillnothaveanadverseimpactonemployersandemployeesoffirmslocatingorexpandingwithintheboundariesoftheareaoftheredevelopmentproject.

EmploymentintheCityoutsidetheProjectAreaApproximately143,225personslivinginLincolnwereemployed,accordingtothe2009AmericanCommunitySurveyandthemedianhouseholdincomewas$48,070.TheProjectwillhaveaminimalimpactontheoverallemploymentintheCity.

OtherImpactsTheProjectshouldhaveapositiveimpactontheneighborhoodandthelocalprivatebusinesssectorbyofferingnewandenhancedsitelocationoptionsforneworexistingbusinesses.TheProjectwillalsoincreasethetaxbasewithoutanadverseeffectoneitherpublicorprivateentities.

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TABLE OF CONTENTS Introduction.........................................................................................................................1 PlanRequirements...................................................................................................................................................................2

ExistingConditions............................................................................................................4 LandUse.......................................................................................................................................................................................4

Zoning ..........................................................................................................................................................................................5

Parks&RecreationFacilitiesandTrails.........................................................................................................................5

Transportation..........................................................................................................................................................................7

PublicUtilities............................................................................................................................................................................9

HistoricSignificance.............................................................................................................................................................10

Blight&SubstandardDeterminationStudy...............................................................................................................11

IdentifiedIssues.....................................................................................................................................................................13

RedevelopmentPlan......................................................................................................14 LPlan2040:GuidingPrinciples........................................................................................................................................14

PiedmontAreaRedevelopmentActivities..................................................................................................................16

FutureLandUse.....................................................................................................................................................................19

RedevelopmentProcesses.................................................................................................................................................19

EstimatedExpenditures.....................................................................................................................................................20

ConformancewithComprehensivePlan.....................................................................................................................20

Financing...................................................................................................................................................................................20

AppendixA:CostBenefitAnalysis.............................................................................22

LISTOFEXHIBITSExhibit1:RedevelopmentAreawithinCityContext.......................................................................................................1

Exhibit2:ExistingLandUse......................................................................................................................................................4

Exhibit3:ExistingZoning...........................................................................................................................................................5

Exhibit4:Trail,PublicTransportationLines,andParkland........................................................................................6

Exhibit5: OriginalPiedmontPlat,1927............................................................................................................................10

Exhibit6: ProposedSitePlan...............................................................................................................................................17

Exhibit7: FutureLandUse–LPlan2040..........................................................................................................................19

LISTOFTABLESTable1:ExistingLandUse.........................................................................................................................................................4