1 2 3 ACKNOWLEDGEMENTS
Missouri River Urban Corridor Plan Work Group The following Allan Rollo Dave Dobbs Dave Elmquist individuals are gratefully acknowledged for their Jon Thompson Ellen Sievert Doug Wicks contributions to this Guy Huestis Steve Gillespie Jim Hertel planning effort: Sharon Patton-Griffin Mark Albers Stuart Lewin Mike Rattray Joan Miller
City-County Planning Staff Robert Horne Jr., AICP Andrew Finch Planning Director Planner II
Consultant Team CTA LandWorks Group Kimberly Meyers-Warren, ASLA Walker-Macy Leland Consulting
This document was funded in part by a CDBG Planning Grant from the Montana Department of Commerce
2 3 4 5 A MAJOR ROLE FOR THE MISSOURI RIVER CORRIDOR
The River… …a major community asset for enhanced livability, growth, and economic development.
The City on the River… …a marketing theme and a strategy through which to tell the World about Great Falls, its business opportunities, and quality of life.
An Opportunity… …to penetrate bigger markets in search of attracting quality jobs and, therefore, growth to sustain community and Riverfront development.
A Major Asset… …around which all interests in the community can rally — recreation, environmental enhancement, commercial development, expansion of Downtown Great Falls, mixed-use and housing development, civic and cultural facilities, and more.
A Valuable Resource… …as a clean and plentiful source of water upon which demands are increasing. …as habitat for fish and wildlife. …as visual and psychological relief from the urban environment.
Marketing the Strengths… …of the Riverfront that creates real estate value—proximity to Water, Views and Public Open Space.
OBJECTIVE
4 5 PROLOGUE
Great Falls’ founder, Paris Besides firing up the economic engines In a period of several years a round- Gibson, recognized the of Great Falls, Gibson was responsible house, shops, switchyard, depot, freight commercial value of this for creating an impressive park system house and a bridge over the Missouri particular site on the and for planting thousands of trees on were constructed in Great Falls, along Missouri River. The waterfall the bare plain that was developing into with several public bridges and under- at Black Eagle was well suited a bustling commercial center. Gibson passes. The construction activity, jobs to provide power needed for balanced his vision of an extensive park and investment were well timed boosts industry. Gibson’s Townsite system with the challenge of establish- to Gibson’s efforts to establish Great Company built the first dam ing the economic viability of the young Falls as a city. and powerhouse at Black city. When presented with the opportu- Eagle in the late 1880s. It nity of another railroad line (the Paris Gibson did what he had to do. He transmitted mechanical power Milwaukee) to link Great Falls with the moved his prized tree nursery, one of via cable drive to a grain mill rest of the country in 1913, Gibson the most extensive in a 500 mile radius, will not be just like any other where General Mills now moved his huge tree nursery from the for the economic vitality and greater urban riverfront. But, our river- stands. Three years later southwest side of what is now Gibson good of the city. While times may have front and our downtown are electric power was first Park to make room for the new berm changed, the basic challenge has not. the heart of our community, produced at Black Eagle and that would link the line to the proposed We must continually find ways for the and they need help. It is going the city began a robust period new depot and bridge across the community to grow and prosper. As a to take new strategies and new of economic growth. Missouri River. society we are more environmentally partnerships to breathe new life conscious, and conservation and into them. preservation are high priorities. We cannot have the parks, trails, and native Unlike Gibson, we are not open spaces of our dreams without a faced with an anxious healthy economy and tax base needed Milwaukee Railroad poised to to sustain them. infuse large sums of money into the economy. It is only by Exceptional public open spaces, green- attracting new partners that we belts, greenways, parks and trails along will take our riverfront to a new urban river corridors are not mutually era of robust economic health. exclusive with vibrant economic activity In doing so, we can be more or commercial and residential develop- sensitive to environmental ment. Quite the opposite. Successful and health and the value of public growing cities along rivers all across this lands. Many people are work- country are redeveloping their river- ing hard to improve the fronts to create inviting public spaces economy of Great Falls right and encourage healthy commercial now. The Missouri River Urban enterprise. We can do the same, though Corridor Plan must assist and not through a "cookie cutter" approach. support these efforts, and we 1891 Panoramic View of Broadwater Bay The Great Falls riverfront of the future must guarantee that a healthy 6 river will endure. 7 CORRIDOR PLAN SCOPE AND PURPOSE
The Missouri River Urban Corridor Plan proximity to the rail lines to move originated as a priority recommendation of raw products in and finished the Great Falls City-County Comprehensive goods in and out. Other sections Plan. The “Comp Plan” was two years in the of the riverfront were formal or making and was adopted jointly by the City informal dump sites and “squatter of Great Falls and Cascade County villages”, and the lack of mosquito Commissions in November, 1999. The Plan abatement and flood control recognized that some development patterns discouraged the very type of along the river corridor represented an development that is attracted opportunity for more desirable, sustainable to the river today. Although the development that would capitalize on the river corridor still contains many river as an amenity and a resource. Both the of these industrial uses that made Economic Development and Land Use perfect sense 40 or 50 years ago, Elements of the Comprehensive Plan call there are usually better locations for such for “a Missouri River Corridor Master Plan to uses today—for example, locations with guide future development and redevelop- larger parcels and better access to major ment of the riverfront….” As a community, we transportation routes such as the Interstate. have done a good job with open space and recreation along the river. However, we have The primary purpose of this Plan is to not done as well with private development. present a vision for what is possible in the Generally, the urban riverfront lands were corridor. Once this vision is conveyed, the first developed as industrial lands due to their plan then sets forth a series of strategies and proximity to the river as a power and actions to make the vision a reality. It must transportation source, as well as their be understood, however, that implementing the vision will take years—perhaps decades. Furthermore, implementation will most likely take place in small increments in many different areas of the corridor. Given the relatively slow real estate market in the Great Falls area and our modest rate of overall growth, some of the development concepts embodied in the vision may not even seem feasible at this time. But with some measure of success from our economic development efforts, we are confident that we will eventually achieve a level of community growth and aware- ness that will stimulate the type of demand needed to realize the vision for the corridor. 6 7 RURAL AREAS
While this plan addresses the Cascade County conducts floodplain associated with flood conditions; destroyed riparian areas and urban corridor of the river, of management and permitting under the potential loss of location, character, and have encroached into equal importance are the vast National Flood Insurance Program. extent of natural drainage courses; to pristine river viewsheds. rural reaches of the Although Cascade County does not regulate and prohibit any non-agricul- Missouri River in have a standard building setback tural or non-recreational uses, structures As part of this planning unincorporated Cascade requirement in the rural areas, the or activities. Therefore, in the bottom- effort, a sub-group of the County. In these rural areas county subdivision regulations and the lands occupying watercourse valleys, Corridor Plan Work Group there are multiple examples Cascade County Development Plan both began preliminary work on of unauthorized placement of address construction in floodplains. The a program and regulatory fill material and other stream- subdivision regulations provide that land framework for the rural bank stabilization projects located in the floodplain of a 100-year areas. Of particular impor- which have adversely frequency event as defined by Title 76, tance are the continued use affected river dynamics and Chapter 5, MCA, or land deemed of riprap and other stream- environmental functions. subject to flooding as determined by the bank stabilization techniques governing body, shall not be subdivided and the removal of natural for building or residential purposes or vegetation. This effort will other uses that may continue and expand increase or which are comprised of soils containing after adoption of this plan aggravate flood alluvial material, developers are required to include a larger group of hazards to life, to use existing official floodplain delinea- stakeholders and citizens rep- health, or property. tions, or, cause to have floodplain lines resentative of rural interests. engineered independently. Any That work should result in The Flood Hazard development of non-agricultural or non- a document and regulatory Evaluation Areas recreational uses will not be allowed to program that can be included in the take place within these floodplain forwarded to and adopted Cascade County delineations. by Cascade County as a Development Plan complementary component are those areas of Many existing riverfront lots in rural of this plan. the county intended Cascade County were created either to contain potential though the subdivision exemption floodplains where process or were not subject to review by it is necessary and the County when State law exempted desirable: because lots greater than 20 acres in size from of the safety hazards local review. This has resulted in homes from floods; financial burdens imposed and other structures that, while in upon the County through rescue and compliance with floodplain regulations, relief efforts occasioned by occupancy subdivision regulations, and the County or use of areas subject to periodic development plan, are negatively flooding; potential loss of life, property impacting the river. Many of these 8 damage, and the losses and risks structures have damaged or entirely 9 GUIDING PRINCIPLES
This Corridor Plan has substantial public interest that multiple objectives. It seeks may in fact be damaged by major to communicate a vision flood events). for economic vitality; for development and redevel- 2. Land and water based recreational opment of lands within the values and opportunities associated Missouri River Corridor for with the river will be created, the benefit of the entire preserved, and enhanced, including community. At the same public access to the river. time it recognizes that the river is a vital part of a large ecosystem, and that the en- 3. This Corridor Plan will promote vironmental integrity of the beneficial, sustainable economic river must be protected. To development that utilizes the river better frame the issues to be as an amenity while preserving and addressed in this document, enhancing its ecological integrity it is helpful to set forth the and asset values. Specifically, basic premises, or “guiding water quality, natural shoreline principles”, on which the vegetation, and wetlands will be plan is based. These restored, enhanced, or protected, principles can then be used and the environmental health of as a yardstick with which to the river will not be compromised measure all actions and recommenda- by development. tions contained in the plan. 4. Major through transportation 1. From the standpoint of river facilities in the river corridor are dynamics, no riverside development discouraged. Alternative routing or stream bank treatment will of such facilities already in the prevent the Missouri River from corridor through responsible urban safely passing flood stage flows, area transportation planning nor will permanent development is encouraged. be allowed that will be damaged by those flows. (Note: This statement is not intended to prevent the placement of properly designed and lawfully constructed piers, decks, docks, trails, or other appurtenant improvements associated with a
8 9 STUDY AREA OVERVIEW – OPPORTUNITIES –
PROJECT OVERVIEW
The community of Great Falls supports the desire to grow through smart development and strategic use of the Missouri River Corridor. The City, having preserved large tracts of public Historic City Layout land within this area, wishes to The legacy of the original city capitalize on the river’s unique design is visible throughout potential to spur economic growth. Great Falls. Double-rows of street The river is already a great place for trees and a strong street grid recreation. Creation of new and pattern exemplify the character of diverse opportunities for people this planning heritage. within the corridor will attract more residents and visitors, raise the level of community activity, and in turn promote economic growth. Current and future residents and businesses can benefit from responsible development in the river corridor without compromising the environmental integrity of the river. Historic Building Character Historic residential and commercial buildings are evident near the river and the core of the City of Great Falls, creating a strong historic character and community identity.
“The very things that hold you here are the very things that would attract someone else. This plan is about telling that story.”
-Dave Leland
Proximity to Downtown Great Falls’ city center is located just a few blocks from the Missouri River. Roads lead to and from downtown, passing through and over the river corridor.
10 11 STUDY AREA OVERVIEW – OPPORTUNITIES –
Public Lands/Open Space Trail System on the Missouri River An extensive trail system has been developed Huge holdings of public land along the Missouri along the Missouri River Corridor. A diverse River are some of the community’s greatest assets. trail experience exists along both banks of the These highly used parklands, owned by the City river, including extensive and varied wildlife of Great Falls and maintained by the City Park viewing. The trail system, however, has and Recreation Department, have kept much of limited connections to the surrounding the river corridor functional and accessible to the neighborhoods and commercial centers. community.
Access Much of the vacant or underdeveloped land in the corridor lies adjacent or close to major thoroughfares, such as 3rd Street NW or River Drive. These higher- traffic corridors can be attractive to potential investors, making high-quality redevelopment of such lands much more likely.
10 11 STUDY AREA OVERVIEW – CONSTRAINTS –
Streets River Environment Several arterial and collector streets are routed High sediment loads from irrigation runoff in the along and across the river corridor. Some of Sun River and Muddy Creek drainages are evi- these routes are characterized by wide road- dent at the confluence of the Missouri and Sun ways with multiple traffic lanes, heavy traffic and Rivers. This has altered the river channel and a lack of landscape buffers to help separate has had a negative effect on water quality and pedestrians from river ecosystems. vehicles. Although The system of these routes generally hydroelectric power provide good dams compounds community traffic this situation by not circulation, bicyclists allowing sediments and pedestrians are to be scoured out. reluctant to travel these routes. This has Bank erosion is also resulted in a loss of a concern along connectivity between many stretches of the river corridor and the river. Random nearby residential materials such as neighborhoods. chunks of broken concrete have been used as riprap in an attempt to stabilize the riverbank, but Railroads uncontrolled use of Although railroads in and through the river fill materials that do not recognize river corridor were vital to early economic dynamics can have serious consequences development efforts in Great Falls, they were downstream. Out of concern for this issue, the and are now major barriers to river access. Cascade County Conservation District has had a Ironically, some of these lines became the river corridor inventory and assessment backbone of the trail system along the river after prepared by a consultant. This document abandonment. Remaining active lines and spurs inventories and documents existing shoreline still restrict vehicular, pedestrian, and bicycle conditions along the urban riverfront. It travel to and through the corridor, which identifies the various bank stabilization reduces the attractiveness for redeveloping techniques that have been employed through lands with such limited access. the urban sections of the Missouri River Corridor and makes recom- mendations for more effective and environmentally sound practices. That document, titled "Missouri River Urban Corridor Inventory & Assess- ment", is adopted as part of this Corridor Plan by reference.
12 13 STUDY AREA OVERVIEW – CONSTRAINTS –
Design Standards CONCLUSION Throughout portions of the river corridor today, While Great Falls has a number of there is a hodgepodge of poor quality design developmental constraints to overcome, elements. In some areas, quonset hut-style it also has strong community assets to buildings and other structures of little aesthetic build upon. It is those assets that will or architectural value, a surplus serve as a foundation for this plan. For of unattractive and prominent example: signage, and a lack of unifying design details like street lighting and landscaping have resulted • Elements of the original Paris Gibson in a chaotic, unappealing envi- plan and existing historic buildings speak ronment. Development of this to the design and commercial heritage of type discourages investment and the city. upgrade to area properties. • The Missouri River itself is Great Falls’ most prominent feature, and central to the city’s identity. • Large holdings of public lands and trails along the river increase its value as Economic Vitality both an amenity and a resource, as does Recent population growth in the Great Falls its proximity to downtown. area has hovered around one percent. Even without any real net population growth, the There are also challenges: city has grown outward, leaving behind vacant • Vehicular and pedestrian access is storefronts and areas in need of revitalization. difficult due to busy streets and railroad Though it is a challenge to create renewed rights-of-way. activity and economic momentum in these • The river divides the city, constricting areas, they can present great opportunities for traffic flow to just a few bridges. partnerships and joint economic ventures • Much of the development that took between businesses and local governments. place in the latter part of the 20th century was generally not strong from an aesthetic and economic standpoint, and has contributed to sprawl and pockets of “dead” space in the corridor. • The river has sustained environmen- Housing tal damage over the years in the form Most Great Falls residents live in one- or two-per- of non-point pollution, sedimentation, son households in single-family detached units. improperly treated banks, and bank As the area population ages, it is anticipated that erosion. housing needs and demands will change accordingly. This presents an opportunity for It is important to remember, however, housing product types that are tailored to the that these challenges also present needs of our aging population—low-mainte- opportunities for mitigation and nance housing that is close to shopping, restoration. Substantial grant funding, medical and financial services, and with areas for technical assistance, and opportunities passive recreation. Especially lacking are multi- for partnerships are available for projects family housing options like apartments, involving redevelopment and condominiums, townhomes, and cluster/patio reclamation. homes that provide alternatives for individuals, the elderly, or single-parent families that may not have the resources or desire to maintain a single- 12 family home. 13 PROJECT FOCUS AREA
OBSERVATIONS CONCLUSION
This Corridor Plan focuses on the role of Any land use study must have limits. In the Missouri River and adjoining lands this plan, the boundaries were restricted within the community. Included in this to the most intensely developed lands study are the river corridor itself and adjoining or in close proximity to the lands adjacent to it that transition Missouri River. The boundaries are between the river and other parts of approximate, and many of the analyses, Great Falls. Primary and Secondary conclusions and Impact Areas are shown on the facing recommendations map. The "Primary Impact Area" within contained in this the dark purple line includes lands with plan could be strong relationships to the river that are applied to lands out- most central to this planning effort. The side the boundaries "Secondary Impact Area" bounded by shown. Likewise, the lighter line has been included for a there are properties greater project context and to explore within the Impact ways to better connect the corridor to Areas for which downtown, residential neighborhoods, the recommended and the overall pulse of the city. development pat- terns and uses may not be appropriate. Common sense dic- tates that decisions on land use within the corridor made by developers and/ or local government must be made in the proper context, and should not rely solely upon concepts or recommenda- tions from this Plan.
14 15 PROJECT AREA
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10th Avenue S.
LEGEND Primary Impact Area Great Falls
International 5 Airport Secondary Impact Area Park Island
Interstate 1 Railroads
Major Roads
14 15 EXISTING LAND USE
OBSERVATIONS CONCLUSION
In general, land use in the Of the residential uses, most are Industrial lands, parks and Primary Impact Area is single-family houses located near the recreational uses are characterized by a mixture of confluence of the Sun and Missouri dominant in the study area. large amounts of industrial, Rivers. Other residential types, such as There is also a relatively large commercial, parks and two-family residential, multiple family amount of vacant land. residential, and mobile homes are few. recreational uses, along with a Although some change in Many nearby residential neighbor- certain amount of vacant and hoods, like those in the Riverview area, land use has occurred in “underdeveloped” land. There Black Eagle and the Upper North Side, recent years through are few residential uses in the lack strong connections to the river. redevelopment of former core of the Primary Impact industrial parcels, the Area. prevalence of industrial uses Small parcels of office and commercial tends to discourage major uses checkerboard the Primary Impact investment in other, more Area. Larger tracts of commercial uses are found west of the river in the sustainable and economically Secondary Impact Area along 3rd St. beneficial land uses like NW and Smelter Avenue. occur along the river, many linked by commercial, residential, and the River’s Edge Trail. Other park and office that would otherwise recreation lands are split or girdled by be attracted to the riverfront. Because the river and parallel railroads adjacent railroad tracks or major roads, These uses would better fit have played such important roles in limiting public access and use to some with the nearby park lands, the historical economy of Great Falls, extent. have a lesser impact on the industrial land use is prominent in the corridor. sensitive river environment It occurs both in large and Vacant parcels are found adjacent to and bring more people to the smaller parcels adjacent or the river within the Primary Impact water's edge. This plan will proximate to the river and Area, and also have relationships to explore ways to encourage railroad lines. industrial, public, and park and other land uses that go hand recreation land uses. These properties in hand with expanding the present valuable opportunities to local economic base and also Park and recreation lands encourage change in predominant promoting and protecting the also have a strong land uses along the river, and should be health and vitality of the presence in the Primary planned and developed carefully. Impact Area, with over Missouri River Corridor. 100 acres of park land currently in use. These large, linear parcels
16 17 EXISTING LAND USE
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Existing Land Use LEGEND Single Family Industrial High Great Falls Residential Impact Area
2 14 International 27 15 Public/ Airport Two Family Semi-Public Residential Secondary Vacant Land Impact Area Multiple-Family Park Residential Agri/Pasture Railroads Island Land Mobile Homes Interstate 15 Major Streets Parks & Office/Commercial Recreation
16 17
14 TRANSPORTATION
OBSERVATIONS foreseeable future. Therefore, new Truck routes generally run parallel to the CONCLUSION development initiatives must work with river through the corridor. River Drive Various transportation the railroads to limit conflicts with auto- is a designated truck route, including a High volumes of traffic flow segment north of 1st Ave. North that systems run through the mobile and pedestrian traffic. through and across the corridor separates Elk’s Riverside Park from the Missouri River Corridor Automobile access to the river’s edge is river’s edge. Between 15th and 25th daily on a generally efficient road- including rail, auto, truck, bus, greatest along the east bank, with only Streets, River Drive is a relatively narrow way system. Although this bike and pedestrian facilities. limited vehicular access on the west. two lane roadway wedged between the provides high visibility for Some facilities are shared by Most of the arterials in the corridor have top of the bluff overlooking the river and businesses, these same volumes multiple modes, while others continuity across town and carry large a strip of business establishments. The restrict access to some adjoining conflict. volumes of peak hour traffic. Some of businesses are set very close to the road- lands whose access is already these roadways, such as 3rd St. NW, way. If River Drive is reconstructed as limited by rail lines and the river. Railroad lines running along Smelter Avenue, and 6th St. SW function proposed in the urban area transporta- Conversely, increased develop- both sides of the river are as arterials on the National Highway tion plan, the decision as to the extent of ment usually brings increased divisive elements that tend System and have been constructed with roadway reconstruction and its impact to conflict with other modes multiple, wide driving lanes to accom- upon the river and the businesses will traffic, which could impact areas of transportation and im- modate higher volumes of traffic. This most likely be a significant community such as bridges that already pede access to the riverfront. has resulted in increased traffic speeds issue. experience some congestion Permitted at-grade crossings and longer crossing distances that tend during peak travel times. Future are extremely limited. While to be intimidating for pedestrians and The River’s Edge Trail runs along the development must carefully grade separated crossings cyclists. east and south banks of the Missouri consider potential impacts on the are preferable from a safety through the length of the project area, roadways due to additional Four vehicular bridges cross the river with stretches of trail on the west and standpoint, they require volume and added points of in the corridor, and are important links north shores. Plans for future projects expensive infrastructure and conflict. take up a great deal of land. in the Great Falls area's transportation will create a continuous trail system But it is a reality that some system. Cross-city traffic is necessarily along both riverbanks through the City rail facilities will remain in funneled to the bridges, affecting traffic of Great Falls and into the immediate Also, aside from the River’s Edge the corridor, at least into the volumes that, in turn, influence land use rural surroundings. These expanded Trail, pedestrians and bicyclists and development. These bridges must trails will provide a variety of recreation often encounter difficulty continue to operate efficiently to experiences at the river’s edge, through moving about the corridor. ensure a functional transportation parklands and open spaces, and along Although a new citywide project system. Similarly, the bridges must con- upland natural areas. Current trail to install sidewalks in some parts tinue to accommodate pedestrians and configurations provide three river cross- of the Secondary Impact Area will bicycles in a safe and effective manner. ings – at the Central Avenue W. Bridge, Weissman Trail Bridge, and the Eagle help some, new transportation Bus routes are not indicated on the Falls Memorial Bridge (9th St.). Existing projects must continue to include Transportation & Trails map, as they do trails, however, are contained mostly planning for safe and convenient not generally run along the corridor. within the river corridor and provide pedestrian travel. In some cases, Bus lines in Great Falls primarily run east few links to downtown or residential such as the Smelter Avenue-3rd from the Downtown terminal. Routes neighborhoods. New trails projects St. NW corridor, there may be an cross the river at the Central Avenue must work to overcome barriers created opportunity to reconstruct West and 15th Street North Bridges, by existing rail corridors and automobile existing roads to "reclaim" a then tend to run in more of a spoke thoroughfares and provide connectivity greater portion of the right-of- pattern. to all parts of the city. 18 way for pedestrian use and an 19 enhanced streetscape. TRANSPORTATION & TRAILS
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Street & Trail Projects LEGEND Existing Trails High Great Falls Impact Area
2 14 International 27 15 Airport Trail Projects Secondary Impact Area Roadway Projects Park Railroads Island
Interstate 15 Truck Routes Major Streets
18 19
14 HISTORIC RESOURCES
Great Falls Railroad Historic District (NR) every period of the city’s development OBSERVATIONS CONCLUSION - The parks and structures that comprise display the construction methodologies and architectural details characteristic of The Original Townsite (1884) this district reflect the community’s de- The three existing and one potential velopment into central Montana’s trade, those periods. of the City of Great Falls * historic districts embody characteristics nestles in, and was shaped by, service, and cultural center. The ad- vent of the two railroads, whose depot and qualities that have been a broad curve of the Missouri towers are prominent landmarks of the Northern Montana State Fairgrounds valued and preserved over time in the River where it bends eastward district, made Great Falls the region’s Historic District (NR) community. Historic Districts can serve towards Black Eagle Falls. primary distribution point. Over 100 Developed for the expressed purpose of as centerpieces for a transition to more Resources within that curve acres of parks played an important role promoting agriculture in north economically beneficial development. document the early history of in the initial commercial development of central Montana, the Fairgrounds The value of historic buildings and the city and clearly illustrate the city by creating a visually appealing contains a collection of flamboyant Deco and Exposition style buildings that districts is well-documented and the rise of Great Falls as the and physically relaxing atmosphere at recognized by successful communities the north and west boundaries of the reflect a history of “Expo” design and a commercial, political, social all across the country. Like the river district. unity of purpose. Because of their open and economic center of north * design, the exhibition buildings have itself, historic districts are assets that central Montana. been able to keep pace with the whims can be capitalized upon to improve Northside Residential Historic District of progress with little change and have livability and attract new businesses, Included in the Missouri River (NR) - This district is historically associ- continued to entice, educate, and patrons, workers and residents to the Corridor study area are three ated with numerous important early entertain fair-goers with exhibits heart of the community. historic districts listed on the settlers, including Great Falls’ founder, ranging from livestock to the fine arts.* National Register of Historic Paris Gibson and renowned local Places (designated NR in the architect, George Shanley. The accompanying descriptions). significant periods in the economic, Tenth Street Bridge (NR) – Completed The National Register of political and social development of Great in 1920, the Tenth Street Bridge was envisioned by the city founder, Paris Historic Places is a list of the Falls are reflected in the architectural Gibson, to connect Great Falls with its nation’s resources considered styles and tree-lined boulevards that characterize the residential district. neighboring community of Black Eagle worthy of preservation. While * and beyond. This bridge is touted as most of the contributing the longest open-spandrel, ribbed-arch, resources are buildings, also Central Business District - The Great concrete bridge in Montana and included are sites, objects and Falls Central Business Historic District is embodies the “pride and optimism” of structures, such as the stone significant as an excellent representa- the community in its formative years. In walls, fountains and other tive example of the broad patterns of the 1980s, there were plans to structures that are contained architectural evolution in the Northern demolish the old structure and build a th th new bridge. However, the bridge still within the extensive system of Great Plains during the late 19 and 20 centuries. The District features an stands today due to growing park lands along the river. eclectic architectural mix that community interest in preserving historic documents commercial growth and resources. When restored the bridge development in downtown Great Falls. will be an important contribution to the Representative examples from nearly aesthetics and character of Great Falls.
*Information provided by City-County Historic Preservation Officer 20 21 HISTORIC RESOURCES
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Historic Resources LEGEND GF Railroad Historic District (NR) High Great Falls Impact Area
2 14 International 27 15 Northside Residential Airport Historic District (NR) Secondary Northern Montana State Impact Area Fairground Historic District (NR) Park Railroads Island Central Business District (proposed) Interstate 15 Major Streets
Tenth Street Bridge (NR)
20 21
14 SHORELINE CONDITIONS
OBSERVATIONS EXISTING SHORELINE CONDITIONS As Great Falls developed, many segments of the urban shoreline were In September 2002, the Missouri filled in and stabilized with rip-rap, car River Urban Corridor Inventory & bodies, broken concrete, and similar Assessment report was produced for material. Despite an the Cascade County Conservation extensive park and District and the City-County Planning trail system, there are Board by Land & Water Consulting few shoreline areas of Missoula, Montana. within the city that provide opportunities This study evaluated over 80 sites along for people to interact 73,530 linear feet of shoreline between with and experience White Bear Island and Black Eagle Dam. the water. Improving Each site was photographed, described, shoreline conditions and categorized as to method of bank and enhancing public protection and degree of bank stability. access to the water The study also mapped numerous dis- should be a major charge and withdrawal pipes and noted consideration as the that extensive amounts of litter, dump- corridor is revitalized ing, and noxious weeds detract from the through development that will capitalize aesthetic appeal of the urban corridor. on the river as an amenity. Sites with extensively rip-rapped banks, with active erosion, or where dumped concrete or other materials are not providing effective stabilization, are prioritized for improvements. Examples of various bio-engineered bank remedia- tion techniques are illustrated, and the appropriate technique is recommended for each priority site. Existing recreation- al use along the river is documented, and opportunities for new beach areas, decks, docks, and other shoreline recreational amenities noted. Potential funding sources for shoreline restoration and recreational enhancements are also provided in the study. 22 23 SHORELINE CONDITIONS
CONCLUSION
The Missouri River Urban Corridor Inventory & Assessment provides both a basic understanding of current shoreline conditions and practical, proven measures for shoreline restoration. This study is therefore included as part of the Missouri River Urban Corridor Plan by reference. Recommended restoration and water-based recreational opportuni- ties should be matched with potential funding sources to produce visible enhancements along publicly owned shoreline. Partnership opportunities should be explored and identified to facilitate improvements along privately owned shoreline, and in conjunction with future redevelopment in the corridor. Improving the condition of the urban shoreline and providing additional public access to the water are integral to the overall corridor revitalization effort.
22 23 SUPERFUND SITES
OBSERVATIONS Anaconda Minerals Company (AMC), Energy West Gas Manufacturing Plant Third Street (NW) Great Falls Refinery – Located east of – Located at 904 9th Street North, this Groundwater Site – rd Superfund sites are lands that 15th Street in Black Eagle, the "ARCO 5-acre former gas manufacturing plant Located along 3 Street NW, two active facilities occupy this are determined through criteria property", as it is locally known, is an operated from 1909 to 1928. It currently site where benzene, toluene, in federal and state law as inactive, roughly 250-acre metals smelter serves as an office/shop complex for and refinery complex which operated Energy West (EW). Leakage from ethylbenzene and xylene having the potential for from 1893 to 1980. AMC produced storage tanks and possible on-site (BTEX), petroleum hydro- significant human health risk copper, zinc, cadmium, and indium in disposal of waste tars and sludges have carbons, chlorinated solvents, and environmental degradation. various forms. Following the closure resulted in contamination of soils and and phenols have all been Such sites are often a deterrent and dismantling of the smelter in the groundwater with polynuclear hydro- found. Presently MDEQ CECRA to investment and revitalization early 1980s, multiple studies were carbons (PAHs); benzene, toluene, program is the lead agency for as environmental remediation, conducted to evaluate site conditions ethylbenzene and xylene (BTEX); low this medium priority site. or “clean up”, is required before relative to arsenic, heavy metals, and levels of cyanide, and some metals. they can be redeveloped. The PCB contamination. In addition, hydro- Groundwater zones indicate six superfund sites within the geologic investigations were under- contaminate levels exceeding WQB-7 CONCLUSION study area are all classified as taken to determine the extent to which (human health standards). Presently EW groundwater was impacted. In 2000, a is working on a voluntary basis to clean Superfund sites and other “medium priority”, meaning that VCRA plan was submitted by ARCO, the up contaminated soil and water. VCRA “brownfields” within the study on a nationwide basis, they are current owner of the property. How- is the lead regulatory program for the area will continue to be not high priorities for clean up ever, parts of the plan were rejected medium priority site. deterrents to future develop- and probably will not be reme- by the Montana DEQ for inadequate ment and redevelopment until diated until such time as they sampling. Additional information about Falls Chemical Company – This is an they are remediated, because become economically attractive the site from nearby property owners inactive pesticide plant operated from of the environmental risks they for redevelopment. has prompted involvement by the U.S. the mid-1970s to 1991. Several investi- Environmental Protection Agency, and gations have been conducted evaluat- pose and also their negative sampling by EPA began in the fall of ing metal levels in on-site soils, downgra- visual impacts. Some of them, The following federal governing 2002. dient surface water, and groundwater. however, such as the 3rd Street acts can be associated with In December 1996 the site was de-listed NW site, are strategically superfund sites: the Comprehen- Burlington Northern (BN) from the MDEQ CECRA priority list. It is located and prime for some sive Environmental Response th Fueling Facility - Located between 6 no longer considered a superfund site. type of public-private partner- Compensation and Liability Act St. SW and the Missouri River, this is an ship to get them cleaned up (CERCLA), and the active 21-acre locomotive re-fueling Montana Refining Company – Located and redeveloped into beneficial Resource Conservation and facility which began operations in 1948. at 1900 10th St. NE in Black Eagle, this uses. The new Stockman’s Bank Recovery Act (RCRA). In 1987, an interceptor trench was active 20-acre oil refinery has operated installed to catch fuel heading towards since at least 1931. During the 1980s, is an example of the level and RCRA mandated monitoring showed attractiveness of private Montana Department of the Missouri River. Presently no free product is observed in the river, but if low levels of petroleum hydrocarbons investment that is possible in Environmental Quality (MDEQ) sediments along the bank are disturbed, and naphthalene in on-site shallow the river corridor if these key governs the various acts, a fuel sheen can be observed. In 1994, groundwater. Later, unrelated work sites can be reclaimed and including the Montana CECRA became the lead regulatory raised concerns about leakage south redeveloped. Comprehensive Environmental program in charge of this site, ranking it of the site when contractors observed Cleanup and Responsibility Act a medium priority project. BNSF has petroleum contamination in soils and (CECRA), and the Voluntary formulated a voluntary clean-up plan shallow groundwater. RCRA currently Cleanup and Recovery Act (VCRA). and installed monitoring and recovery regulates the site, but CECRA has ranked 24 wells on site in 2002. the site medium priority. 25 SUPERFUND SITES
Y
W
vre H a
ld H O
Lewis & Clark Interpretive Center Smelter Avenue
Tailrace Island d
Sacajawea Islan NW Bypass W 8th Avenue N.
15th St. N. 25th St. N 3rd St. N River Drive
Park Drive
.
Central Avenue W. 1st Avenue N. Central Avenue
10th Avenue S.
DR ORT AIRP
Superfund Sites LEGEND Anaconda Minerals Company, High Great Falls Great Falls Refinery Impact Area
2 14 International 27 15 Airport Burlington Northern Fueling Facilty Secondary Energy West Gas Manufacturing Plant Impact Area
Park Falls Chemical Company Railroads Island Great Falls Refinery - Phillips Petroleum Interstate 15 Major Streets
Third Street (NW) Groundwater Site
24 25
14 STUDY AREA SUMMARY
OBSERVATIONS CONCLUSION
The map on the opposite in the corridor have contributed to the that has discouraged new investment in This plan envisions a page shows a composite view damage to the river environment, and more beneficial and sustainable urban transition for the river corridor of existing conditions in the have created unattractive development land uses. from a center of heavy river corridor. industry to a thoughtful mix of land uses more relevant to The Missouri River is a the Great Falls of today and tremendous community asset. more sustainable for the future.
Not only is it a center for Y It is an emerging vision that will recreation and activity, but it is W only be realized with the part of Great Falls’ collective avre H support of many, many stake-
ld H history, playing a key role in O holders. LewisAs this & Clark vision for the Interpretive Center the economy and industry of Smelter Avenue corridor begins to take shape, the city. It is a corridor of the Great Falls community will natural beauty, providing be looked to for ideas,
tranquil contrast to the urban resources, and investment. d activity around it. The river corridor has the potential to Sacajawea Islan This plan is intended to be a NW Bypass be a major focus of W flexible tool that will guide 8th Avenue N.
15th St. N. activity — central to everyday 25th St. N development in the corridor. 3rd St. N life, commerce, and River Drive It is intended to be visionary yet
community. Park Drive non-prescriptive, because
. development opportunities Central Avenue W. The river also presents 1st Avenue N. LEGEND cannot be foretold and Central Avenue High challenges that must be Impact Area community values and needs
overcome as opportunities Secondary change over time. The best for redevelopment and Impact Area ideas may be those that rise Railroads change in the corridor are out of opportunities not yet Major Streets explored. The river Industrial identified. The following is a physically divides the city. Vacant and Agri/Pasture general strategy for implemen-
It limits the flow of traffic 10th Avenue S. Superfund Sites tation that is strongly rooted in
Anaconda Minerals Company, DR ORT and people fromAIRP one side of the community at large. It Great Falls Refinery
the city to the other, yet at the Burlington Northern Fueling Facilty identifies barriers to be same time it provides Energy West Gas Manufacturing Plant overcome and opportunities to Falls Chemical Company unsurpassedGreat Falls opportunities be capitalized upon, and sets
2 14 International 27 15 Great Falls Refinery - Phillips Petroleum for Airportrevitalization. Heavy forth some potential develop- Third Street (NW) Groundwater Site commercial and industrial uses ment scenarios for key parts of Park Island the corridor. Interstate 15 26 27
14 COMPOSITE
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Lewis & Clark Interpretive Center Smelter Avenue
d
Sacajawea Islan NW Bypass W 8th Avenue N.
15th St. N. 25th St. N 3rd St. N River Drive
Park Drive
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Central Avenue W.
1st Avenue N. Central Avenue
Street & Trail Projects LEGEND High Existing Trails Impact Area
Secondary Trail Projects 10th Avenue S. Impact Area Roadway Projects Railroads
DR ORT AIRP Major Streets Truck Routes
Existing Land Use Historic Resources Superfund Sites
Single Family Industrial GF Railroad Historic District (NR) Anaconda Minerals Company, Great Falls Residential Great Falls Refinery
2 14 International 27 15 Public/ Northside Residential Airport Two Family Semi-Public Historic District (NR) Burlington Northern Fueling Facilty Residential Vacant Land Northern Montana State Energy West Gas Manufacturing Plant Multiple-Family Fairground Historic District (NR) Park Residential Agri/Pasture Falls Chemical Company Island Land Central Business District Mobile Homes (proposed) Great Falls Refinery - Phillips Petroleum Interstate 15 Parks & Office/Commercial Recreation Tenth Street Bridge (NR) Third Street (NW) Groundwater Site
26 27
14 IMPLEMENTATION PHILOSOPHY
The success of any plan cannot Success is much more likely when be measured simply by its adop- there are supportive government tion by a commission or by the structures and policies and a quality of its physical design. supportive media. These are the Success is measured by actual foundation for effective imple- programs and built projects that mentation. And while each combine to change the land- implementation strategy must scape in ways that conform to be carefully tailored to individual the vision. Those changes can communities, there are a number only be seen over time—the of elements that all successful Missouri River Urban Corridor strategies have in common. The Plan is just the beginning of the following eight "Strategic process, not the end. Therefore, Components" are recommended it is critical that a strategy to lay to guide implementation of the the groundwork and carry out Missouri River the vision—an Implementation Urban Corridor Strategy—be incorporated into Plan in Great Falls. the plan.
Successful implementation involves several key components. It requires committed, ongoing leadership and organization, as well as a communications program that broadcasts accomplishments. 28 29 STRATEGIC COMPONENTS
MAKE A GREAT PLAN • Make this Corridor Plan powerful and visionary so that it captures the hearts and imagination of the community and wins its support for many years of hard work to come.
MANY, MANY PROJECTS • A Great Plan moves many projects forward at the same time – large and small – all in support of the vision. COMMUNICATION MANY, MANY & MARKETING • Leadership must continually STAKEHOLDERS communicate progress and successes. • People who are invested in one or • Maintain communication among more projects must pull together to stakeholders, projects proponents, make and implement a Great Plan. and the community. Win-win for all.
SUPPORTIVE GOVERNMENT COMMITTED, • The Missouri River is not only an ONGOING LEADERSHIP asset to the city and county, but to the • Seeking success for the entire entire region as well. Governments at community, devoted to Great Falls, all levels need to work together – able to lead and motivate. a collaboration for success with clear goals, expediting of public projects, and support for needed DEVELOPMENT STANDARDS policy changes. • Clear and consistent guidelines that communicate the vision of the Great Plan. ONGOING REVIEW • Encourage that which is desired; • Dynamic plans require ongoing prohibit that which is not. review that responds to changing conditions —periodic evaluation • Flexible and dynamic tools. of the Great Plan with appropriate adjustments.
28 29 IMPLEMENTATION STRATEGY
Strategic MAKE A GREAT PLAN Components ....A plan that will recognize many, many projects—potential and existing— involve many, many stakeholders—and mobilize them with a motivating vision MAKE A GREAT PLAN that captures their imagination.
A Great Plan: MANY, MANY PROJECTS • Goes far beyond patching problems with quick-fix solutions or reacting to specific issues. MANY, MANY STAKEHOLDERS • Presents a vision strong enough to motivate people to take action. • Addresses long-term possibilities regardless of short-term constraints. COMMITTED, ONGOING LEADERSHIP The Missouri River Urban Corridor Plan provides a long-term vision for economic revitalization in the corridor through the creation of riverfront communities on both sides of the river. This Corridor Plan also promotes developing riverfront gateways into DEVELOPMENT STANDARDS the downtown and enhancing the river’s relationship to other neighborhoods in the city.
COMMUNICATION Developing the Great Plan includes building & MARKETING the “human infrastructure” for a vision-making process to continue through implementation. SUPPORTIVE The plan defines concrete solutions to specific GOVERNMENT revitalization challenges and sets a course for attracting new investment.
ONGOING REVIEW
30 31 IMPLEMENTATION STRATEGY
MANY, MANY, PROJECTS & ACTIONS Strategic Components To keep the Missouri River Urban Corridor Plan and its vision on track, a variety of projects should be simultaneously underway. It is highly unlikely that a single MAKE A GREAT PLAN big project will “save the day.” Rather, through a series of small and mid-size actions, programs, and projects, the public and private sectors working together will achieve the Great Plan. Having many, many projects facilitates a diversity of development MANY, MANY PROJECTS products along the Riverfront and keeps projects small, allowing involvement from the local financial and development community. The definition of what constitutes a project MANY, MANY is broad—regulatory policy, code revisions, development projects, and educational STAKEHOLDERS programs are all worthy projects: • Planning projects – physical plans, specific plans, illustrative plans; COMMITTED, ONGOING LEADERSHIP • Policy development, better and more flexible regulatory tools, and design guidelines; • Public physical projects – parks, recreation, trails, open space, riverfront access; DEVELOPMENT STANDARDS • Waterfront enhancement – cleanup, environmental restoration, reclamation; • Public infrastructure improvements – utilities, access, street lighting, furniture; COMMUNICATION & MARKETING • Private sector housing development; • Private sector commercial & lodging development; SUPPORTIVE • Private sector office and employment development; GOVERNMENT • Public sector cultural facility development;
ONGOING REVIEW • Economic development programs that feature the riverfront; • Planning to connect Downtown with the river; • Events – music and arts festivals at the riverfront; • Local lending pools for riverfront revitalization; • Application of varied financial tools for public-private partnerships;
This can (and should) be a lengthy list of dynamic projects and actions—anything that furthers the Great Plan!
Make this list available to the community and use it as a tool to track progress and celebrate successes along the road to implementation. 30 31 IMPLEMENTATION STRATEGY
MANY, MANY STAKEHOLDERS Strategic Components Implementation requires collaboration and support among stakeholders. A stakeholder is any individual or organization with an interest in the plan’s MAKE A GREAT PLAN outcome. This includes a wide group of individuals, companies, and public and private organizations, as well as government bodies at all levels. The key to successful implementation of the Great Plan will be creating mechanisms for MANY, MANY PROJECTS marrying the many, many stakeholders—current and potential—with the many, many projects—existing and proposed. The Missouri River belongs to everyone – MANY, MANY citizens, recreationists, property owners, business interests, environmentalists, STAKEHOLDERS and developers.
COMMITTED, • Stakeholders provide a broad base of involvement and promote ONGOING LEADERSHIP project implementation;
DEVELOPMENT • Stakeholders form the basis of political support for implementation STANDARDS of the strategy;
COMMUNICATION • A wide stakeholder base leads to a diversity of ideas, projects, & MARKETING and solutions;
• People are often the biggest barriers SUPPORTIVE GOVERNMENT to success of the plan – let them be part of the solution.
ONGOING REVIEW
32 33 IMPLEMENTATION STRATEGY
COMMITTED ONGOING CITY AND Strategic Components PRIVATE SECTOR LEADERSHIP
The plan will have many advocates, but ongoing, committed leaders who see MAKE A GREAT PLAN the plan through are essential to its success.
MANY, MANY PROJECTS Seek out leaders who:
MANY, MANY • Desire success for the entire community; STAKEHOLDERS • Are respected by the community;
COMMITTED, ONGOING LEADERSHIP • Have the ability to motivate and organize stakeholders; and
DEVELOPMENT • Promote and communicate the vision embodied in the plan. STANDARDS
COMMUNICATION & MARKETING Early in the process, a “champion” should be designated within the City to advocate for the riverfront and resolve issues quickly. The Corridor SUPPORTIVE Plan will involve multiple city agencies; an internal GOVERNMENT champion can help motivate and coordinate these agencies as well as quickly resolve issues and act ONGOING REVIEW as a liaison to policymakers. From the private sector, an individual, a committee, or an umbrella organiza- tion that represents a broad base of special interests should work in partnership with the City to further the Great Plan. A high-level partnership of public and private leaders is necessary for successful implementation of the Missouri River Urban Corridor Plan.
32 33 IMPLEMENTATION STRATEGY
DEVELOPMENT STANDARDS Strategic Components The Great Plan must provide clear and consistent guidelines that communicate the vi- sion. Plans are inherently forward-looking and are more likely to succeed if they MAKE A GREAT PLAN offer dynamic and flexible standards that can easily respond to new opportunities as they arise. Successful development standards provide an essential set of tools to guide implementation—without being overly prescriptive. Development standards may MANY, MANY PROJECTS include streetscape guidelines, zoning code revisions, building code amendments, Corridor Plan goals, and existing planning standards. Regardless of the existing pattern, MANY, MANY it is important for the development standards to be examined to determine if they STAKEHOLDERS encourage implementation.
COMMITTED, Development standards should: ONGOING LEADERSHIP • Include clear and consistent guidelines that communicate the vision of the plan; DEVELOPMENT STANDARDS • Encourage that which is desired and strongly prohibit that which is not wanted;
COMMUNICATION • Offer dynamic and flexible guides—pragmatic standards for change; & MARKETING
• Allow for the vision to be implemented over a period of time; and SUPPORTIVE GOVERNMENT • Back up those standards with enforcement, incentives and resources for implementation. ONGOING REVIEW
34 35 IMPLEMENTATION STRATEGY
Strategic COMMUNICATION AND MARKETING Components With many, many projects underway at the same time, there will be many successes to broadcast. There must be a communication and marketing MAKE A GREAT PLAN platform to keep people—and the media—informed about those successes. This increases prospects for further successes because investors, developers,
MANY, MANY PROJECTS and lenders seek out environments with market opportunity. In other words, success breeds success.
MANY, MANY It should be clearly understood that: STAKEHOLDERS • Both the organization and the leadership must communicate for successful implementation; COMMITTED, ONGOING LEADERSHIP • Marketing means making news out of the continuing projects; and
DEVELOPMENT STANDARDS • Communication on projects is essential at all levels: among implementing agencies, among the many, many stakeholders, and among the greater Great Falls community.
COMMUNICATION & MARKETING The Committed Leadership should formalize communication networks so that they become regularly filled with local implementation success stories. These networks also SUPPORTIVE GOVERNMENT should address internal communication among stakeholders as well as external communication to the Great Falls community at large and potential investors. Creative strategies for promoting the plan and capturing the commitment of these target ONGOING REVIEW audiences can be devised as part of a marketing and communication plan. “Changed Attitudes and Communication may take place via a number of formats: Perception Can Change • Local media – newspaper, TV, radio; Behavior ...... To Produce • Newsletters; Desired Results.” • Websites; • Public meetings; -Dave Leland • Brochures and plans; • Signage; and • Internal and external e-mail networks.
34 35 IMPLEMENTATION STRATEGY
Strategic SUPPORTIVE GOVERNMENT Components Government is an essential partner, albeit one that is often misunderstood and under- appreciated by the private sector. After all, there are some things only government MAKE A GREAT PLAN can do. As marketer and developer, the City has the responsibility and the authority to remove barriers to implementation. For instance, the City can change outdated and
MANY, MANY PROJECTS inappropriate codes and offer public financing or bonuses to encourage private investment. Supportive government is essential for the public signage program, streetscape and design standards, traffic synchronization, public arts and entertainment MANY, MANY areas, parks and open space planning, pedestrian and bicycle access, and parking STAKEHOLDERS planning. All of these efforts require leadership and innovation on the part of government. COMMITTED, ONGOING LEADERSHIP To be successful, government must look beyond traditional approaches to problem solving and begin thinking more like an implementer and facilitator and less
DEVELOPMENT like a regulator. STANDARDS Key roles of government may include:
COMMUNICATION • Address financial barriers by developing funding strategies & MARKETING that capture state and federal dollars for matching private investment; • Develop good communication between governments and SUPPORTIVE GOVERNMENT Committed Ongoing Leadership; • Prioritize key strategic actions government will take to support effective implementation; ONGOING REVIEW • Provide support for achieving standards—consultation with property owners or potential developers, code enforcement and assistance; and • Assess the internal structure to review its practices and identify and change policies in a reasonable timeframe so that private sector investors are encouraged to take an active role in implementation.
As a public entity, the City can foster partnerships with private or public investors to develop key opportunity sites within the corridor that will lead to further implementation of the Great Plan.
36 37 IMPLEMENTATION STRATEGY
Strategic ONGOING REVIEW Components The plan and its implementation strategy will benefit from establishment of a formal, ongoing review process. A review process will evaluate policies and the degree to MAKE A GREAT PLAN which the plan is being successfully implemented. In order to remain effective:
• Dynamic plans require ongoing review that responds to changing conditions; and MANY, MANY PROJECTS • All aspects must be evaluated—the plan, the projects, communications—and MANY, MANY periodic plan adjustments must be made when necessary. STAKEHOLDERS
As the Corridor Plan evolves and the organization changes, the need for internal and COMMITTED, external review will become increasingly important. Most plans benefit from the ONGOING LEADERSHIP opportunity to stop and examine progress so that the means are consistent with the goals. Setting a date for review during the first year and annual review after the first DEVELOPMENT year is appropriate and necessary for Great Falls. STANDARDS
COMMUNICATION & MARKETING
SUPPORTIVE GOVERNMENT
ONGOING REVIEW
36 37 REMOVE BARRIERS TO SUCCESS
PHYSICAL MARKET As implementation of the Missouri River Providing adequate infrastructure and Effecting a sustained campaign to bring Urban Corridor Plan progresses, there will access, working with topography, quality jobs and therefore solid growth be a need to overcome or remove effectively integrating public and private to Great Falls. Lack of growth is the barriers that stand in the way. Barriers can development, removing unproductive single biggest barrier to success– for the be described as anything that block the and inappropriate uses. community and the riverfront way between the current situation and implementation of the plan. Barriers can Examples: Examples: vary widely – some are physical, some 1 Limited access to most 1 Slow economic and population political, some are tied to fear or lack of redevelopment sites. growth in Great Falls. understanding, many relate to timing. Because barriers will either prevent or 2 Streets will need to be rerouted 2 General lack of experience in local inhibit implementation of the plan, and/or vacated; utilities removed market for mixed-use development. and reinstalled. they must be addressed early in the implementation process. Some barriers 3 Perception that “quality” housing 3 Few high quality developments is only desired in outlying areas. have to do with the future – getting ready on nearby properties; poor for new development and investment; quality streetscapes. 4 City not yet active in marketing and others have to do with correcting the promoting infill redevelopment. problems of the past. The Missouri River 4 Lack of connections to adjacent Urban Corridor Plan addresses the past, the neighborhoods; especially present and the future. bike/pedestrian connections.
5 Weak connections between the Most barriers fall into one or more of five riverfront and downtown. categories. These categories include: • Physical barriers 6 Railroad rights-of-way constrain access to many redevelopment sites. • Financial barriers • Market barriers 7 Overhead lines and obsolete street lighting clutter the • Regulatory barriers corridor landscape. • Political barriers 8 Eroded, unnatural, and improperly stabilized banks, litter, and noxious weeds create an unattractive shoreline and separate people from the water’s edge.
38 39 REMOVE BARRIERS TO SUCCESS
FINANCIAL REGULATORY POLITICAL Low rents are barriers to initial riverfront New regulations will be needed both Elected officials will need the firm development – a challenge for the to guide new development as well as support of interests throughout the private sector to build quality develop- preserve the opportunity for quality community (business, recreation, ment. Public-private partnering is development in the future – design environmental, etc.) to make those essential, particularly for those early guidelines, performance standards, tough decisions that will ensure a pioneering projects. new zoning classifications, other. great Corridor Plan.
Examples: Examples: Examples: 1 Lack of local access to 1 River corridor dominated by 1 Implementation will require development capital. industrial zoning; discourages coordination of many agencies – desired mixed uses. local, regional, and state. 2 Local financial organizations inexperienced in alternative 2 No mixed-use/multi-use zoning 2 Currently the City has no financing mechanisms. districts or options in local public-private partnering models, regulations appropriate for incentives, programs, or funding 3 Most redevelopment sites riverfront redevelopment. mechanisms that are based on their will require assembling past successes in joint development. multiple properties. 3 Incomplete data on prior uses makes environmental assessment difficult. 3 Non-local railroad management 4 Not all property owners are slows decision-making process. developers or are capable of 4 No local brownfields redevelopment participating in joint development; programs. 4 Insufficient stakeholder may prefer to be bought out in cash. interest/involvement. 5 Uneven and fragmented code 5 Most redevelopment will require enforcement. demolition and disposal of industrial structures, some of which may have environmental problems.
38 39 KEY DEVELOPMENT AREAS
The implementation strategies activity, creating growth and PULSE identified may be best applied opportunity. All activity nodes DEVELOPMENT STRATEGY by targeting specific areas in the are planned to be walkable, Missouri River Corridor for “pulse safe, and inviting, but differ from development.” The underlying one another in character, purpose of pulse development function and purpose, so that is to formulate development each offers a unique experience. concepts for strategic locations, Ideally, pulse developments are or focal points, within the larger interspersed with lower-intensity area. The concepts provided for uses such as community open these pulse developments are space that provide amenities not meant to be prescriptive nor and serve as buffers. to preclude other sound development ideas—quite the Potential locations for pulse contrary. They represent a vision developments in the Missouri of what is possible—a new way River Corridor were selected of looking based on a number of criteria. at the rede- Vacant or undeveloped lands velopment were obvious choices, espe- potential of cially those adjacent to bridges land in the and other major transportation corridor. elements. Parcels that capital- ized on the scenic quality of the These river were also desirable. The nodes of diagram on page 41 illustrates high-inten- locations for pulse development sity, mixed-use residential and opportunities. commercial development 40 provide a hub for commercial 41 40 41 DEVELOPMENT PRINCIPLES
The following concepts illustrate exciting possibilities for new development in the Missouri River Urban Corridor. Though these are relatively large-scale projects, they may be viewed as a composite of many smaller projects that will require the actions of many, many stake- holders working together to realize the vision.
These concepts for the Old Brewery Property and the Bay Drive Community are located on the west river bank near the Central Avenue West Bridge. Several overriding development principles were identified that gave rise to these concepts:
42 43 DEVELOPMENT PRINCIPLES
Existing Commercial • Incorporate existing commercial developments into new community. • Focus on existing commercial/restaurant use as an “activity magnet” that activates the street corridor.
Proposed Commercial / Office Development • Mixed with residential development. • Provide live-work opportunities with ground level commercial and upper story residential.
Residential • Orient housing to open space and views. • Face as many units as possible to amenities.
Community Open Space • Keep the waterfront open to the public. • Provide sufficient building and parking setbacks to protect water quality and keep open space functional. • Provide continuous pedestrian circulation along waterfront. • Extend green connections from the river’s edge to neighboring communities. • Incorporate small community parks and open space amenities. • Create activity nodes and gathering places along pedestrian paths.
Vehicular Access & Parking • Realign existing roads as necessary to increase and/or reconfigure developable area. • Use existing railroad crossings where possible. • New parking located behind residential so it is not visible from river’s edge. • Parking acts as buffer between railroad tracks and residential.
Commercial/Office Buffer • Commercial/office development capitalizes on primary street frontage and acts as a buffer, sheltering residential development behind.
42 43 DEVELOPMENT SCENARIOS
BAY DRIVE COMMUNITY Drive to the west to maximize develop- able land in the area and provide better CONCEPT connectivity with the river. LAND USE This concept envisions a mix of land uses that includes multi-family residences, restaurants, offices and retail stores. Existing commercial and restaurant uses are integrated with new development
and serve to activate the community. They are typically located along major
streets and function as a buffer to residential uses.
Residential development offers a number of alternatives including traditional rental apartments, townhomes with attached two-car garages, and live/work studios that provide office space on the ground floor, with living quarters above. All capitalize on views of the river and other Existing Commercial amenities of the site. OPEN SPACE & AMENITIES Proposed Commercial / The riverfront is open to the public Office Development and buildings carefully sited to create corridors of open space for easy pedestrian access to the water’s Residential edge. Pedestrian pathways continue through the site, providing linkage to other neighborhoods and adjacent Community Open Space CONTEXT properties. Community open space is Diagram of The facing illustration explores more punctuated by activity nodes and Development Principles gathering places, to promote a high level specific ideas for the Bay Drive Commu- Vehicular Access nity Concept. An estimated 24 acres, of activity. Green space and image & Parking the community is oriented toward the elements are used at the main entry river and backed on the west by the and throughout, creating an aesthetic railroad corridor and 3rd Street SW. It environment and special sense of place Commercial/ 44 would require a realignment of Bay for residents and visitors. Office Buffer 45
44 45 DEVELOPMENT SCENARIOS
OLD BREWERY PROPERTY right-of-way. This is a slightly smaller area at just under 6 acres, but it employs the same set of development principles as the Bay Drive Community concept.
LAND USE Land use in this concept calls primarily
for multi-family residential apartments, with a mix of office, retail, and commercial uses. A land swap with the park would “square up” the property creating a more usable configuration. Commercial and office development is oriented to Central Avenue West, which activates the street edge and slows traffic. Commercial uses also act as a buffer to the internal residential apartments. Residential development capitalizes on views of the river and other site open space amenities. Existing Commercial Parking behind the residential and commercial structures acts as a buffer to the rail corridor. Proposed Commercial / Office Development OPEN SPACE & AMENITIES The riverfront remains open to the Residential Diagram of public. Buildings are carefully sited to Development Principles CONTEXT create corridors of open space for easy The Old Brewery Property is also pedestrian access to the water’s edge. Community Open Space located on the west bank of the Pedestrian pathways extend through Missouri River, and is separated from the site, providing linkage to other the Bay Drive Community by Central neighborhoods and adjacent properties. Vehicular Access Avenue West. The property is bounded Community open space is punctuated & Parking on the north by a public park/natural by recreational and gathering places to area and on the west by a railroad encourage a lively, active environment. Commercial/ 46 Office Buffer 47
46 47 APPROPRIATE RIVERFRONT USES
The Following is a list of land uses that Employment reinforce the new vision for the Corporate Offices Missouri River Corridor. Some of these uses have been incorporated in the Technology Offices concepts for Bay Drive and the Old Government Offices Brewery Property, or may already Speculative Office Buildings exist. Because it is impossible to antici- pate future development opportunities, it is important to identify a range of land Civic & Cultural Uses uses and project types, to allow for the greatest flexibility. Museum Performing Arts Facilities Library Information Center Urban Residential Rental apartments 2-4 story Owner condominiums 2-4 story Recreation/Open Space Urban Lofts Parks, Trails, and Open Space Row Houses & Town Houses Athletic Club Stacked Housing (owner/renter) Boating & Water Activities Senior Housing Mixed-Use (housing/commercial) This list is not comprehensive. Stakehold- ers can and should remain open to alternative uses that fall within the over- Retail & Commercial Lodging all vision for the River Corridor. Specialty Retail Restaurants – Dinner Houses Restaurants – Family Dining Meeting Facilities Recreation Retail Entertainment Retail Hotels & Motels
48 49 TRANSPORTATION CORRIDORS AND CONNECTIVITY
Beyond mixed-use development SMELTER AVENUE / 3rd St. NW PROPOSED IMPROVEMENTS projects, improvements to key transportation corridors in the study Currently, Smelter Avenue and 3rd St. Below is an illustrative section area will have a significant and positive NW are major arterial roads that act showing suggested improve- impact. Suggested improvements to as barriers between outlying neighbor- ments to Smelter Avenue within Smelter Avenue and River Drive, on the hoods and the river corridor. Traffic the existing street right-of-way. following pages, explore ways to safely speed and volumes are high, creating They include the addition of a integrate pedestrian routes with these an intimidating environment for concrete median, curb and corridors so that they become viable pedestrians. Industrial uses along gutter, and planting strips with pedestrian connections, as opposed to Smelter Avenue, combined with the street trees along both sides of barriers. Landscape enhancements absence of strong landscape and site the road. Roadside plantings work to separate pedestrians from design standards, have created an help to separate pedestrian traffic lanes, and achieve a more unattractive thoroughfare. from automobile traffic, and positive aesthetic. also screen unsightly industrial areas, parking lots, and outdoor storage areas to create a more attractive roadway.
48 49 TRANSPORTATION CORRIDORS AND CONNECTIVITY
RIVER DRIVE SOUTH Suggested improvements to River Drive Two traffic lanes remain, as do two South at Broadwater Bay include land- parallel parking lanes on either side. scape enhancements and better articulation of pedestrian traffic. The Pedestrian crossings are designed for addition of double rows of street trees user safety and aesthetics. At crossings, on both sides of River Drive create a the curb is bumped out and roadside pleasant walk-through experience for parking discontinued to ensure that pedestrians and echo the original Paris pedestrians are easily seen by motorists. Gibson plan for the City. Landscaping is A change in paving texture and color further used to create a sense of sepa- helps to create a pedestrian-friendly ration for pedestrians, screen roadside feeling and alert motorists that they parking areas, and generally improve are passing through a designated the aesthetic of River Drive. pedestrian zone.
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50 51 TRANSPORTATION CORRIDORS AND CONNECTIVITY
SCENIC VIEWS AND DRIVES CONNECTIVITY The value of scenic views to the com- Existing parks and development at munity of is recognized in the Growth Broadwater Bay are a tremendous Policy, and many citizens treasure sce- asset to downtown Great Falls. nic drives such as River Drive along the However, the railroad corridor and the Missouri River through Elks Riverside alignment of other existing structures Park, and near the dams. Scenic views inhibit an easy flow of pedestrian should be preserved and enhanced traffic between downtown and the during the development of lands in river’s edge. The diagram opposite the Corridor. Example methods for shows opportunities for pedestrian view preservation include: clustered linkage between Broadwater Bay and development; trail, greenway, street or the downtown business district. The underground utility easements; park- links from the river to downtown should land dedications; stormwater deten- be clearly marked by wayfaring signs, tion basins; and, height restrictions. preferably depicting some identifiable logo or “brand identity” for the downtown area.
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52 53 GETTING STARTED
Long Although full implementation of the Missouri River Urban Corridor Term Plan –– Plan may take 20 years or more, there are opportunities for short term Short Term successes: Successes
• The City of Great Falls has provided, is currently providing, and will continue to provide an environment in the form of parks, trails, and open spaces that attracts people and investment to the riverfront. The City therefore, particularly the Park and Recreation Department, is a logical joint-venture partner with the private sector.
• Design the Great Plan, but start with a pilot project – working with selected major property owners to jointly prepare a specific development program, physical plan and implementation strategy.
• Conduct meetings and workshops with stakeholders, potential developers, and finance professionals to share the vision presented in this plan, brainstorm new ideas for development, implementation, and attracting new investment.
• The City, Conservation District, private groups, and other partners can complete a shoreline and shallows cleanup of the riverfront as recommended in the Missouri River Urban Corridor Inventory & Assessment.
• Further explore some immediate opportunities, verifying with market research: - Riverfront lodging, dining, and meeting facilities - Riverfront housing – respond to the needs of one and two person households seeking alternative housing (64 percent of all households) – an underserved market. - Corporate or speculative offices
• Recognize that the initial project(s) will undoubtedly require public-private partnering and use of some public financing tools such as tax increment and other incentives. Early projects will need more help than later projects. Use a pilot project as an interactive laboratory to test new regulations, design guides, policies, programs, and funding mechanisms.
54 55 RECOMMENDED STEPS
Plan implementation can and adopted to allow and encourage the have the side benefit putting the City in 8. The City should adopt a should begin immediately with type of development and redevelop- a position for additional assistance and policy (or regulation, as the following steps: ment envisioned in this plan. funding through various federal brown- appropriate) requiring that fields programs. riverfront development 3. The City should immediately de- involving streambank 1. This Corridor Plan recom- velop a list of capital projects which will 6. The Park and Recreation Depart- alteration stabilize the mends that the designated be needed to support redevelopment ment should identify City-owned land adjacent bank in substantial truck route that runs along and leverage private investment in the in the corridor that may be of marginal compliance with the Missouri River Drive North between corridor. Examples would be re-routing value for park purposes, but may River Urban Corridor Inventory Elks Riverside Park and the Bay Drive as shown in the Bay Drive offer good development opportunities. & Assessment. river be relocated to another Community concept, and opening and These lands (if they exist) may be able to route. Furthermore, it is rec- improving access to West Bank Park be sold or leased for development that 9. The City, with involvement ommended that, if and when along 4th Ave. NW. Any relevant items would be beneficial to the community of stakeholders and the River Drive North from 15th St. already in the Transportation Improve- and to the remaining park facility. Areas general public, should to 38th St. is reconstructed, no ment Program (TIP) should also be suitable for seasonal and special event immediately begin to compile widening be allowed to further included. concessions should also be identified. a list of riverfront regulatory encroach upon the high bank issues to be addressed in the above the Missouri River and 4. A web site should be established to 7. The City of Great Falls should new land development code, the River’s Edge Trail below. provide information about the Corridor analyze what financial resources could including but not limited to: These recommendations shall Plan and the “many, many projects”, and be directed toward improvements in the be immediately forwarded to to provide a continuous communication corridor. Funds will be needed for the • Setbacks from the Montana Department of platform for the stakeholders and the public projects described above, which the streambank Transportation and shall be general public. The site should also in turn will leverage private • Grading and drainage noted in the updated Urban provide information to prospective dollars. The City needs to determine (for water quality Area Transportation Plan. developers and brokers about any what the appropriate programs and considerations) incentives and the City’s general willing- funding sources are. For example, tax 2. The City of Great Falls ness to enter into partnerships to increment financing (TIF), using CDBG • Acquiring easements and the City-County Planning expedite redevelopment and to make it funds under Section 108 (borrowing as part of the Board shall review the zoning more financially feasible. against future entitlements), Treasure development process in the corridor and recom- State Endowment Program funding • Preserving natural mend appropriate changes 5. As many of the key development (TSEP), and others may be used when a riparian vegetation that can be made quickly. sites in the corridor have some form of specific project meets eligibility require- • Public access/ This will mostly involve indus- environmental contamination, the City ments. However, the City must connectivity trial zoning that should be should initiate a “brownfields” program determine what financial support it is changed to commercial. In to assist in assessments, clean-up, and willing to provide and what program(s) • Viewshed/view conjunction with a new City environmental insurance. Having an it is willing to use so that potential corridors zoning code, a mixed-use PUD “up and running” local program would investors have a level of comfort and type of district should be make redevelopment of contaminated surety that the City will be a performing sites move faster and with less risk, and partner. 54 55 CONCLUSION
This Corridor participation from all stake- Plan is only holders and a commitment to the begin- be creative with our collective ning of a community resources, in order new vision to accomplish more. for the Missouri This plan should not be River regarded as one giant project, Corridor. so much as a compilation of It is founded on an examination great but realistic projects of existing conditions, land use, that, when implemented, will environmental and shoreline work together to achieve an conditions, and infrastructure in ultimately better whole. As a the corridor, and how those guiding document, the Missouri factors affect future develop- River Urban Corridor Plan must ment and potential for change. remain flexible, so it can adapt Local participants in the to opportunities as they arise. planning process have been instrumental in sharing Great Most importantly, we must Falls’ identity as a community celebrate our community – what it is today and what it successes along the way, to has the promise to become. maintain momentum and enthusiasm as we realize our Steps for implementation have new vision for the Missouri River been identified that will bring Corridor. success, but that will require
56 57 CTA LANDWORKS GROUP PRODUCTION
2004
BOOKLET DESIGN: CTA DESIGN 56 57 CTA LANDWORKS GROUP KIM MEYERS WARREN, ASLA WALKER•MACY LELAND CONSULTING GROUP