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Boulevard System Master Plan St. Joseph, Missouri June 2009

Table of Contents

Page Number

I. INTRODUCTION ...... 4 The Master Plan Document The Identified Area for the Boulevard System Why create the Boulevard System? Purpose of the Master Plan Organization of the Master Plan

II. FACTORS AFFECTING DEVELOPMENT ...... 8 Physical Factors ...... 8 • Existing Aesthetic Resources • Summary and Conclusion

III. THE BOULEVARD SYSTEM MASTER PLAN ...... 11 General Provisions ...... 11 Elements of the Master Plan • Boulevard System Master Plan Defined • Terms Defined

General Goals of the Master Plan • Nature of General Goals

General Policies of the Boulevard System Master Plan • The Boulevard System Master Plan as a Fundamental Policy Guide • Review of Plans and Policies • Citizen Participation

The Boulevard System Master Plan of the City of St. Joseph, Missouri

Transportation ...... 15 • Nature and Purpose • Definitions and Functional Classification of Boulevard Design Elements ...... 21 • Nature and Purpose • Goals and Policies for the Development of Additional Civic Design Elements

IV. PLAN IMPLEMENTATION ...... 26 Overview Annual Review and Monitoring Amendments Relationship to the Budget Development Regulations Plan Implementation Program Implementation Overview

V. LIST OF TABLES Table 1: Illustration ...... 19 Table 2: Roundabout Conflict Comparison ...... 20

VI. APPENDICIES Appendix A: Development Regulation updates Appendix B: Plan Implementation Program Appendix C: Land Use Plan Map Appendix D: and Boulevard System Map

3 The Boulevard System Master Plan of the City of St. Joseph, Missouri

I. Introduction The year 1916 marked the initiation of a vision for a parkway and boulevard system within the City of St. Joseph. The intent of this vision was to encompass the entire city to provide a scenic and aesthetically pleasing “belt line” as described by John I. McDonald, an original 1916 Park Board Member. The newspapers during that same era refer to the vision and beauty of the parkways and boulevards as “a necklace encircling the city.” While the vision was carried out in the initial construction of what is now referred to as the Historic Parkway, the vision did not carry itself into the later development of the eastern portion of the City. The beauty and aesthetics of the “necklace” became more of a bracelet, only beautifying a certain portion of the City. While beauty is certainly captured in the existing parks and parkway systems, this beauty is secluded only to the western portion of the City. Following the original intent of the boulevard and parkway system, this Plan will lay the foundation to complete the true vision of encompassing the entire city, thereby completing the “necklace” of interconnected boulevards, parks and parkways. In addition to the expansion of the boulevard system, this Plan will create opportunities for future park and parkway development on the east side of the City.

The Master Plan Document The Boulevard System Master Plan for the City of St. Joseph serves as the official policy to guide future expansion and growth of the boulevard system to provide interconnectivity to the City’s Historical Parkway System. The Plan details and describes the activities related to the boulevard system and all related standards and regulations required to implement the Plan.

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The Boulevard System Master Plan of the City of St. Joseph, Missouri

In December of 2007, several discussions were held regarding the future of the Historic Parkway System and future possibilities of the expansion of that system. We soon realized that our ability to construct a similar parkway system that would be comparable to the Historic Parkway System designed and built in the 1920’s through 1940’s, was not feasible for many areas within the community due to roadways already constructed and the lack of available area to recreate the Parkway. The Land Use Plan (LUP) at that time designated several roadways to be constructed as a Parkway; however as previously mentioned, the areas around the roadways had already been built out, thereby creating an enormous challenge to acquire additional right-of way needed for the construction of an expansion to the Historic Parkway.

On January 15, 2008, city staff held a work session to brainstorm and determine a direction for the Historic Parkway System and all interconnecting roadways throughout the City. The work session was attended by individuals from the Planning Division, Public Works and Transportation, Parks and Recreation, and members of the Planning Commission. As a result of this meeting, it was mutually agreed by all in attendance that the Historic Parkway System could not be built as indicated in the LUP. Staff began the task of establishing an acceptable definition of the Historic Parkway while also establishing a clear direction in which to implement a newly classified boulevard system to provide a park-like system of roadways that would interconnect the Historic Parkway System with the east side of the City while opening up the possibility of constructing new Parkways within an expanded park system, consistent with the established Historical Parkways on the west side of the City.

This process would not only involve city staff, Planning Commissioners and City Council members, but would involve citizen input in conjunction with the annual update of the LUP. Staff conducted public meetings which facilitated open discussion between staff, Planning Commissioners and citizens. This should be continued throughout the initiation of the Plan, and throughout the development of the boulevard system.

5 The Boulevard System Master Plan of the City of St. Joseph, Missouri

Identified Areas for the Boulevard System The typical planning area for a Boulevard System Master Plan encompasses the entire community. This is a long term plan to create a loop system that will provide enhanced aesthetics to each area of town. Specific roadways have been researched and studied and have been determined to be the optimal roadways in which to be dedicated a boulevard. The roadways are existing roadways abutted by mostly undeveloped land that will be ideal for the negotiation of additional right-of-way in which to facilitate the typical section of a boulevard . The identified streets include Cook Road (from its farthest west point to Riverside Road including the proposed expansion to I-229), Riverside Road, Pickett Road, Ajax Road, Waterworks Road and a portion of MacArthur Drive, all totaling an approximate 25 mile stretch of roadway to provide an interconnection of existing parks and parkways, as well as providing connectivity to future parks and parkways on the east side of the City.

Why create the Boulevard System Master Plan? The adopted Land Use Plan calls for the City “to provide for thoughtful extension of the planned open space and Boulevard System.” Prior to

The above picture is of Noyes Boulevard. This is an excellent the writing of this document, there has been no formalized strategy for example of initial planning efforts to establish a boulevard system. the formation of a Boulevard System other than the declaration of such on the Land Use Plan Map (See Map 1). At this time, if the City were to try to implement the development of the Boulevard System in conjunction with a neighboring development, the City would not have codified support or a master plan in place to look upon for guidance in policy making decisions. It is imperative to have a comprehensive plan supported by enforceable code language that can be utilized by all departments, boards, commissions and councils to provide clear direction for the future development of the Boulevard System.

6 The Boulevard System Master Plan of the City of St. Joseph, Missouri

Purpose of the Master Plan The primary purpose of the Boulevard System Master Plan is to establish a comprehensive basis and general framework that will direct the future expansion and creation of a boulevard system providing interconnectivity with existing and future park systems. To ensure consistency with other long range planning documents, this Plan is designed to be a multifunctional plan that will provide guidance and cohesiveness with other plans including but not limited to the Land Use Plan, Long Range Transportation Plan, Bicycle and Pedestrian Master Plan, Zoning Code and the Subdivision Code. Because decisions regarding land use and development are both short-term and long-term, the Plan also must be flexible enough to guide decisions of the City Council, Planning Commission and City Staff, but must have enough rigidity to implement its long-range vision of setting clear development goals for the Boulevard System.

Organization of the Master Plan This document addresses three basic objectives: 1) Physical factors and characteristics that influence the development of a boulevard system, 2) Presentation of the Boulevard System Master Plan, and 3) Recommendations for implementation of the Plan.

Chapter 1 focuses on factors and characteristics of the areas determined to be most suitable to be constructed or reconstructed as a boulevard. These include physical considerations such as width of existing right-of-way, the ability to acquire additional right-of-way as development occurs, and connections to existing parks, parkways and boulevards. Chapter 1 next reflects on the existing development of the study area and its potential impact on future land uses and development.

Chapter 2 of this document presents the Boulevard System Master Plan and its objective. The sole objective in the Plan is to set a clear and comprehensive plan that encompasses all planning documents and applicable city codes. This relates the specific decree of

7 The Boulevard System Master Plan of the City of St. Joseph, Missouri the Land Use Plan which clearly identifies the conservation and creation of a Boulevard System to enhance and expand the parks, parkways and boulevard systems.

Chapter 3 presents the general provisions, goals and policies of the Boulevard System Master Plan. This chapter includes the elements of the Plan, including the nature of the general goals pertaining to the review of existing plans and policies, citizen participation, transportation aspects and the overall design elements of the boulevard.

Chapter 4 presents the tools to be utilized to implement the Boulevard System Master Plan. This chapter includes capital improvement recommendations and specific recommendations regarding the implementation of City's Boulevard System development goals.

II. Factors Affecting Development

Physical Factors Many physical factors are considered when determining where the Boulevard System should be constructed. For example, consideration must be made as to the creation and continuation of connectivity between existing parks and parkways while incorporating the entire city into the Boulevard System. Cook Road near Route W – on both sides of the Cookbridge Road are innear place Route for Wfuture – sidewalks Boulevard on Developmentboth sides of the are in place for future Boulevard Development. Additionally, the areas to be developed as a boulevard are typically underdeveloped areas with room for the expansion of the right-of-way to accommodate the needed area for a wider than usual right-

8 The Boulevard System Master Plan of the City of St. Joseph, Missouri of-way to utilize bicycle and pedestrian activity. While Pickett Road is significantly developed, the existing right-of-way will be able to facilitate the retrofitting of a park-like boulevard treatment to the roadway. The following is a brief description of the physical factors that can be found within the study area.

Existing Aesthetic Resources Existing aesthetic resources refer to the physical factors (topography, vegetation, etc.) outlined within this document and also cited within the Land Use Plan, which provide unique opportunities for creating views, vistas, natural gateways, nature areas, and landmarks.

As previously mentioned, the goal is to accentuate the existing park and parkway system. This Plan will provide an extension of our unique natural treasure by providing a park-like system of roadways to connect the Historic Parkways as well as future parks and park systems.

One intriguing opportunity for immediate boulevard design is the reconstruction of Waterworks Road. With the commitment by the City to enhance and develop the riverfront area in the northwest portion of the City, this should be one of the MacArthur Drive – Proposed Boulevard initial implementations of the Plan. This roadway will tie into the newly McArthur Drive – Proposed Boulevard constructed Remington Nature Center and the neighboring park land as well as continuing northeast and connecting to the proposed Cook Road extension also designated within this Plan as a boulevard. This opens an unprecedented opportunity to provide an uninterrupted park-like boulevard roadway from the eastern portion of the City continuing and expanding the historic and physical relationship to the Missouri River.

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Summary and Conclusion Of the many physical characteristics that can affect the Boulevard System development, the most prominent to consider is the location and placement of the Boulevard System throughout the City utilizing and preserving as much of the existing natural open areas as possible. The promotion of the Missouri River through the implementation of the Boulevard in conjunction with Waterworks Road and MacArthur Drive will provide a unique opportunity to showcase a natural feature that has been underutilized in previous planning. Adding physical characteristics to the Boulevard System goes beyond just “looking nice.” It offers many advantages to all users of the transportation system. For example, providing ample vegetation (trees, shrubs, etc.) creates a safe and aesthetically pleasing barrier between vehicles and pedestrians, while also providing a relief from the sun with the use of shade trees. Additionally, boulevard systems with enhanced features create an attractive corridor for future development. Providing such elements as mixed mode transportation and adequate vegetation gives St. Joseph the economic advantage it needs to attract high paying and high quality businesses. Businesses such as these want to provide their employees with a high quality of life. A boulevard system is a cost effective way of including elements that raise the standard on the quality of life. NoyesNoyes BoulevardBoulevard St. Joseph was once a national leader in the creation of our parks and specifically the parkway system; yet, as the City has grown and continues to grow to the east, parks and parkways have not continued to grow and expand. With the identification of the physical factors in relation to the determined layout of the Boulevard System, the topography and natural aesthetics are the key attribute to creating a natural expansion to the Historic Parkways System while promoting the creation and expansion of parks and parkways on the east side of the City.

10 The Boulevard System Master Plan of the City of St. Joseph, Missouri

III. The Boulevard System Master Plan

General Provisions Elements of the Boulevard System Master Plan The Boulevard System Master Plan is the result of the analysis of the existing parks and parkway system and projections of future expansion to promote, enhance and expand this unique feature throughout the City of St. Joseph. The Plan represents the City's overall policy for the development of a Boulevard System in addition to the Historic Parkway System, all maintaining cohesiveness with the Land Use Plan, Long Range Transportation Plan, Bicycle and Pedestrian Master Plan, civic design plans and proposed funding options. The goals, objectives, policies and standards of each are presented in the Boulevard System Master Plan.

Boulevard System Master Plan Defined The Boulevard System Master Plan is the official statement of the policies, programs and plans, in graphic and written form, for guidance and direction of the physical development of the community for the expansion of a park-like Boulevard System designed to promote, enhance and expand the Historic Parkway System.

11 The Boulevard System Master Plan of the City of St. Joseph, Missouri

Terms Defined To maintain consistency with other planning documents, specifically the Land Use Plan, the terms and definitions have been mirrored within this document. They are as follows: Goal A general statement of community decisions and aspirations indicating that the community officially agrees to strive to achieve success through the implementation of the Boulevard System Master Plan. Objective A more limited and precise aim, purpose, or condition than a goal. An objective is officially adopted and is intended to be realized in various ways, including among others, through the implementation of the Boulevard System Master Plan. Assumption An official postulation regarding some aspect of the nature of the City as related to its present or future status. Policy An officially adopted course or method of action intended to be followed. Principle A primary or basic doctrine, an indication of fundamental relationships. Standard A definitive rule providing qualitative and quantitative measurement to be used as basis for design or course of action.

12 Waterworks Road near the Heritage Park Softball Complex The Boulevard System Master Plan of the City of St. Joseph, Missouri

General Goals of the Boulevard System Master Plan Physical Environmental Nature of General Goals Goals It is the general goal of the City of St. Joseph to continue the expansion of the parks, • parkways and boulevards throughout the entire city. The creation of a Boulevard To provide for thoughtful extension of the planned open System Master Plan will space and the implementation of provide a comprehensive plan an expanded boulevard system. to encompass park and boulevard development in • To provide a comprehensive conjunction with other plan for the use of land for parks development in the area. The and open space in a rational goal will particularly address pattern that encompasses the the lack of a connection of the entire City.

parks, parkways and boulevard • To prevent improper develop- systems to the east side of the Village Drive ment from occurring in environ- City (See Map 2). In doing so, mentally sensitive areas. the area will be fully utilized while providing for conservation of open space utilizing the natural topography and aesthetic backdrop to enhance the boulevard. These • To preserve the unique and enhancements to the City it will provide a higher quality of life for our citizens and natural assets of the region that restore a centerpiece in which the community can be proud, thereby encouraging the have historic significance or citizens to invest their efforts in the support of the Boulevard System, whether it is qualities that endear themselves the investment of time, energy or monetary wealth. to the community.

13 The Boulevard System Master Plan of the City of St. Joseph, Missouri

The general goals listed below are goals which directly relate to the expansion of the open areas/parks, the physical development of the Boulevard System and the comprehensive development of the City for which the City Council has a primary responsibility to implement and maintain.

General Policies of the Boulevard System Master Plan The Boulevard System Master Plan as the Fundamental Policy Guide The policies for the expansion/development of the Boulevard System are set forth in this Plan and shall be used in cooperation with the Long Range Transportation Plan, the Zoning Ordinance, Subdivision Regulations, the Parks & Recreation Ordinance, the Streets, Sidewalks and other Public Places Ordinance and other codes and ordinances relating to the basic and fundamental development policy of the community. All other plans, codes and ordinances, and amendments thereto, shall be in conformity with the intent of policies both explicitly and implicitly expressed in the Boulevard System Master Plan. It is the intent of this document to be reviewed as a guide prior to the Planning Commission reviewing and recommending action to the City Council on development plans, ordinances, and amendments to the Plan to ensure the goals and policies are implemented to the fullest extent.

Review of Plans and Policies A comprehensive review of all goals, assumptions, and policies for the development of the Boulevard System shall be made at least once every five years by the Planning Commission, or as otherwise requested by the City Council or initiated by the Planning Commission.

14 The Boulevard System Master Plan of the City of St. Joseph, Missouri

Citizen Participation While performing the necessary research for the implementation of this Plan, it was determined that the involvement of the citizens of this community would be a vital piece in creating a plan that provides a service to the community. Realizing that there must be public input and support in order for this Plan to be effectively and successfully implemented, several public work sessions were held in conjunction with the update of the Land Use Plan in 2009. During these open sessions, we were provided with input from not only the Planning Commission, but most importantly from the citizens. Education and consensus-building should be the foundation as we move forward with the implementation of the Boulevard System. It is important that the citizens understand their role in the development of the Boulevard System and are afforded the opportunity to fully understand the positive impact this will have on the entire community.

Transportation Nature and Purpose The Boulevard System Master Plan is a diverse plan and is as much of a transportation plan as it is a land use plan. It must address those elements of the transportation network that have major impact on the development of the principal land use areas. The Long Range Transportation Plan – St. Joseph 2020: Vision for the Future, which is the official transportation plan of the City, should incorporate and provide necessary input to provide consistency and support to the Boulevard System Master Plan. In conjunction with the creation of this Plan, the Public Works and Transportation Department is currently updating the Long Range Transportation Plan and is incorporating the vision of this document into the proposed updates.

Definitions and Functional Classification of Streets In an effort to maintain consistency with other planning documents, specifically the Land Use Plan, the definitions have been mirrored within this document. They are as follows:

15 The Boulevard System Master Plan of the City of St. Joseph, Missouri

Principal Arterial. The St. Joseph system is made up of the principal arterials in the region. Principal arterials include all interstate freeways. Freeways connect the region with other areas in the state and other states. They also connect the St. Joseph central business district to regional business concentrations. The emphasis is on mobility as opposed to land access. They only connect with other freeways, other principal arterials and select minor arterials and collectors. The freeways provide for the longest trips in the region.

Arterial. The arterial system connects the urban area to cities and towns inside and outside the region. They interconnect the rural growth centers in the region to one another as well as to similar places just outside the City. They provide supplementary connections between the St. Joseph Central Business District (CBD) and the regional business concentrations. They connect major generators within the CBD and the regional business concentrations. Arterials can further be broken down into Relievers, Expanders, and Augmenters/Connectors (see Long Range Transportation Plan for definition of each); however, for the purpose of this document, they will all be shown simply as minor arterials.

Collector. The collector system provides connection between neighborhoods and from neighborhoods to minor business concentrations. It also provides supplementary interconnections of major generators within the St. Joseph CBD and regional business concentrations. Mobility and land access are equally important. Direct land access should predominantly be to development concentrations. Collector connections are predominantly to minor arterials.

Local Street. Local streets connect blocks and land parcels. The primary emphasis is on land access. In most cases, local streets will connect to other local streets and collectors. In some cases, they will connect to minor arterials. Local streets serve short trips at low speeds. In the urban area, local streets will occur every block. In the rural areas, one mile spacing may be appropriate.

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Parkway. St. Joseph was one of the first cities in the to develop an imaginative and comprehensive parkway plan. Anchored on the north by Krug Park and on the south by Hyde Park, the 26 miles of greenway features a multitude of outdoor and indoor recreational opportunities, walking and scenic overlooks. The completed system connects principal parks and recreation facilities throughout the City. In an effort to extend the parkway system, it can be melded into any of the above classification of streets with proper planning.

Boulevard. The intent of the Boulevard System is to implement a park-like setting along designated routes to provide an extension of the Historical Parkway. The Boulevard System will be enhanced by extensive landscaping and street trees within center medians and along right-of-ways, and by providing extra wide sidewalks. The travel will provide bike lanes, while including transit facilities where needed. The Boulevard System will encompass existing roadways with the intent to expand south of the current City Limits. These areas have been designated as such on the Land Use Plan Map. The Boulevard System can be constructed in conjunction with new development along these roadways.

Goals of the Plan Pertaining to Transportation The Long-Range Transportation Plan includes Goals and Objectives pertaining to major streets, bicycle and pedestrian, transit, rail, and air quality. Several of those goals include: This corridor does not provide different modes of transportation. • Strengthen the connection between land use and Retrofitting sidewalks will be much more costly than providing them with the initial construction of the road. transportation planning.

17 The Boulevard System Master Plan of the City of St. Joseph, Missouri

• Support alternative modes to improve air quality. • Promote efficient movement of people and goods by linking the various modes of transportation. • Encourage the concentration of employment and activity sites within transit corridors to maximize transportation efficiency and reduce congestion.

The design features of the Boulevard System will incorporate: • 65% of trips less than • Sidewalks on both sides of the street. one mile are now taken • Bicycle lanes where appropriate. by automobile

• Transit shelters and cut-outs where necessary. • 55% of Americans would prefer to drive Research has shown that incorporating all modes of transportation within a corridor at the onset less and walk more of development is the most cost effective way of moving people, and will reduce future congestion.

In addition to cost benefits, creating a multi-modal corridor will also help avoid future congestion. According to a 2001 National Household Travel Survey published by the Federal Highway Administration: • 65% of trips less than one mile are now taken by automobile. • 55% of Americans would prefer to drive less and walk more.

These statistics represent a transportation system that has been lacking in proper development by not providing safe means to travel via foot or bicycle. Providing a simple or bike is far more cost effective than adding another lane to a roadway.

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Roundabouts To maintain the theme of the Boulevard System, it is important to think about how to design and build an attractive and safe corridor around intersections. have been in use for decades, but not until recently has the ‘modern roundabout’ become the poster-child of the popular signalized . This section will discuss what a roundabout is and will explain the function it will serve on the Boulevard System. The picture to the left is an example of a typical roundabout design that could be used on the St. Joseph Boulevard System.

What is a Roundabout? A roundabout is a circular intersection where traffic flows around a center island. Roundabouts are safe, efficient and less costly than a signalized intersection. Since vehicles entering the roundabout are required to yield to traffic in the circle, more vehicles can move through the intersection with less delay.

Benefits of a Roundabout vs. a Typical Intersection • Safety o Far less conflict points (see Examples) o Forces a slower speed when entering o Impossible to “run a red light” • Reduce Congestion o Efficient during both peak hours and other times Typically less delay Courtesy: Griffiss Air Force Base, Rome o • Reduce Pollution and Fuel Use o Fewer stops and hard acceleration, less time idling at traffic signals

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• Save Money o Often no signal equipment to install, power and maintain o Smaller roundabouts may require less right-of-way than traditional intersections o Often less pavement needed • Complement other Common Community Values o Quieter operation o Functionally and aesthetically pleasing

The diagrams below show the number of conflict points in a roundabout versus a typical intersection. Conflict points are the particular points in an area that could potentially collide or intersect with another person or vehicle. Clearly, the diagrams show that the safety benefits of a roundabout far exceed those of the typical intersection:

2-way roundabout 2-lane road standard intersection

8 Vehicle to vehicle 32 Vehicle to vehicle conflicts 8 Vehicle to pedestrian 24 Vehicle to pedestrian conflicts

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Change is a Good Thing While there is substantial evidence and research to suggest that roundabouts are superior to typical intersections, the idea of something new and perhaps innovative can intimidate citizens. Community acceptance will be challenging at the onset, so it is important to educate the public about roundabouts. A case study in Vail, Colorado showed that the initial public opinion of their new roundabout was 2 to 1 against the project. After much public involvement and construction, the public changed their opinion in favor of the roundabout to a typical intersection 3 to 1.

Design Elements Nature and Purpose Design elements are a key factor of the Boulevard System Master Plan and contribute both to the City's spatial organization and its overall quality of life. They provide structure for the overall physical design of the Boulevard System and act as a guide for future decisions. Proper design and implementation will provide amenities for the citizens and will become strong tools for economic development by increasing the physical and social attractiveness of the City.

Goals and Policies for the Development of Additional Design Elements Goals. Design elements should help strengthen the physical structure of the City and its development of the parks system. Street Design. The civic design elements provided within the City should help meet the need for recreation amenities in St. Joseph. They should be located where opportunities exist to strengthen the historic, recreational or other features of the City.

Below are the typical sections of what will be required in the development of the Boulevard System. Each drawing depicts unique characteristics dependent upon the amount of right-of-way that is available. The key design element is the intermingling of vehicular, bicycle and pedestrian facilities. Within this design, it will be required that native plantings be used

21 The Boulevard System Master Plan of the City of St. Joseph, Missouri

to provide consistency with the adopted tree ordinance. Approved species of trees are provided within the tree ordinance which include but are not limited to:

• Crabapple • Oak • Hackberry • Plum • Pear • Maple: Red, Black & Sugar • Ash: Green & White Autumn purple • Basswood: American • Hawthorn: Cockspur, Washington • Beech: American • Sweetgum: Male • Honeylocust • Cherry: Black • Sycamore

The typical section below shows a 150 foot right-of-way, with the utilization of a mixed modal design providing services to vehicular bicycle and pedestrian modes, while still providing a heavily landscaped green area. This particular design incorporates a travel lane for four vehicles with a separately striped bicycle lane. To provide a “park-like” treatment, this design would require a 15 foot raised center median and a 25 foot open planting area between the and sidewalk. In addition to the bicycle and vehicle lanes, eight foot sidewalks would be installed on both sides of the street for pedestrian traffic.

150 Foot Right-of-Way Typical Section

8’ Sidewalk 25’ Planting Space 6’ Striped Lane 12’ Travel 12’ Travel 15’ Raised Median 12’ Travel 12’ Travel 6’ Striped Lane 25’ Planting Space 8’ Sidewalk *6” shared Lane Lane Lane Lane *6” shared gutter gutter pvmt pvmt 2½” Curb 2½” Curb 22 150’ Right-Of-Way 22

*6’ striped bike lane with 6” shared in gutter pavement The Boulevard System Master Plan of the City of St. Joseph, Missouri

100100’ Foot Right Right-of-Wayof-Way Typical Typical Section Section w/ w/a Striped a Striped Bike Bike Lane Lane

8’ Sidewalk 16’ Planting Space 12’ Travel Lane + 4’ 16’ Raised Median 12’ Travel Lane + 4’ 16’ Planting Space 8’ Sidewalk Striped Bike Lane Striped Bike Lane 2½” Curb 2½” Curb 100’ Right-Of-Way

*4’ Striped Bike Lane with 6” shared in gutter pavement

In addition to the 150 foot right-of-way, we have designed subsequent typical sections to be utilized in areas where 150 feet is unavailable due to the area being developed or to topographical restraints. In an effort to provide flexibility in design, two 100 foot typical sections have been created. These typical sections are similar in overall characteristics but have subtle differences. With 100 feet of right-of-way, there will be ample opportunity to provide a mixed modal transportation system. As you see in the previous illustration and the illustration below (located on page 24), these designs will utilize a 12 foot travel lane with an additional four foot striped bike lane, or a 14 foot shared travel/bike lane. In both typical sections, substantial planting areas will be required, including a landscaped center median accompanied by eight foot sidewalks on both sides of the street.

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100 Foot Right-of-Way Typical Section w/ a Shared Bike Lane

8’ Sidewalk 17½’ Planting Space 14’ Shared Travel Lane 16’ Raised 14’ Shared Travel Lane 17½’ Planting Space 8’ Sidewalk Median 2½” Curb 2½” Curb 100’ Right-Of-Way

While the 150 foot typical section is the most desirable when available and the 100 foot typical section is a viable option for most areas that already have established development in the planned areas, Pickett Road and Ajax Road have specific challenges to address. These challenges, as previously mentioned, are that the areas along Pickett Road and Ajax Road are essentially built out and the acquisition of additional right-of-way would be cost prohibitive. Realizing this, the following typical section is identified to be utilized within the existing 70 feet of right-of-way. This typical section will be comparable to its wider counterparts in that it will incorporate multi-modal transportation including a 14 foot shared travel lane with a landscaped center median, accompanied by a roadside planting area and five foot sidewalks on both sides of the street.

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70 Foot Typical Section

5’ Sidewalk 5’ Planting Space 14’ Shared Travel Lane 16’ Raised 14’ Shared Travel Lane 5’ Planting Space 5’ Sidewalk Landscaped Median 2½” Curb 2½” Curb 70’ Right-Of-Way

Recommended Strategies • Extend the parkway system, either by a formal extension of the park system or through a Boulevard System consisting of a park-like treatment of certain streets as indicated within this Plan and also in the Land Use Plan Map. • Establish additional Park Systems on the east side of the City, specifically near the One Hundred and Two River, to be tied into the Boulevard System thereby extending the interconnectivity of the parks and providing additional opportunities for new parks.

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IV. Plan Implementation

Overview This chapter describes the review process, amendments, budgetary responsibilities and implementation strategies of the Boulevard System Master Plan. The Plan must be referred to in all development processes to ensure the Boulevard is included where the proposed development includes an area identified as such. As development occurs, this Plan should be reviewed for budgetary consideration on a yearly basis. This chapter also identifies the areas of the City Code that should be amended to include regulatory standards that can be enforced as part of a required development plan.

Annual Review & Monitoring Prior to the adoption of the annual budget, the City Council should: • Measure the City's success in achieving Plan goals through the recommended strategies of the Plan Implementation Program discussed at the end of this document; • Propose strategies to be pursued under the coming year's budget; • Identify unlisted strategies that will achieve Plan goals; and • Summarize development actions which affect the Plan's provisions. This review should include statements identifying the City’s progress in achieving the goals of the Plan, the impact of the Plan, and proposed programs to help achieve the Plan's goals. The review should be used as a tool to help set budgetary priorities.

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Amendments The Boulevard System Master Plan is intended to serve as a guide for the development of the Boulevard System. The intent of this Plan is for the City to develop standards for the expansion of the boulevard and parkway system that is consistent throughout all the City’s development regulations and planning policies. Amendments are anticipated as the environment changes. Amendments should be proposed upon review of the Plan but should be no more frequent than once each calendar year. Limiting opportunities to amend the Plan will prevent the Plan from becoming arbitrary and inconsistent with its original intent.

Policy Review & Amendment To ensure that the Boulevard System Master Plan remains a useful tool for decision-makers, periodic evaluations of the Plan’s goals and policies should be performed. These evaluations should be performed every five years, but can be done more frequently depending on the rate of change in the community, and should consider the following: • Progress in implementing the Plan; • Fiscal conditions and the ability to finance public investments recommended by the Plan; and • Community support for the Plan's goals and policies. The major review process should encourage input from the community through the Planning Commission. Plan amendments that appear appropriate will be performed at the direction of the Planning Commission and City Council.

Relationship to Budget The annual budget is imperative to the implementation of the Plan, as it sets the spending priorities for the coming year. The Plan should serve as the basis for the staff’s recommended work programs and a focus for the City Council’s discussion of priorities from year to year. City staff should review the Plan goals and implementation programs in an effort to recommend strategic goals in a manner that is consistent the Plan.

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When there is a conflict between budget priorities and the goals and policies of this Plan, the City Council should consider whether those goals or policies remain valid. If they are valid, then the City Council should reevaluate budget priorities.

Development Regulations The development regulations (zoning and subdivision regulations, public works regulations, and the long range transportation plan) are the most important tools for Plan implementation. Because the Boulevard System Master Plan does not carry the force of law, the City must carry out many of the Plan policies through the aforementioned regulatory documents. Updates to these development regulations should be consistent with the Boulevard System Master Plan to ensure that incremental actions on development requests support the Plan’s goals, policies and recommendations. (See Appendix A)

Plan Implementation Program The Boulevard Master Plan will require several modifications to specific sections of City Code and budgetary action to achieve its goals. Attached to the Plan is Appendix B, the Plan Implementation Program, which provides a listing of specific tasks that will need to be addressed to lay the foundation for implementation of the goals and policies of the Plan. The Plan Implementation Program is a tool to be utilized when setting a priority checklist to refer to as we progress in the development of the Boulevard System. This program should be reviewed annually to identify City accomplishments and to introduce any needed changes/updates. The Plan Implementation Program is intended to be the checks and balances portion of the Plan needed to ensure a focused approach in the development of the Boulevard.

Implementation Overview The construction of the Boulevard System and acquisition of necessary right-of-way can be accomplished through a series of possible funding sources; however, most of the funding will be by the expenditure of City tax revenue, applicable state or federal grants and

28 The Boulevard System Master Plan of the City of St. Joseph, Missouri private donations. This Plan is intended to be implemented over a period of 20-25 years and it will need to be considered in each budget proposal, CIP proposal, and any future General Obligation Bond initiative. While the costs will be substantial to construct this Boulevard System, the value to the City will be priceless. Below are some of the possible available funding sources.

Capital Improvement Program As the Capital Improvement Program sales tax (CIP tax) is approved, it can designate a portion of the CIP tax for property acquisition, right-of-way enhancement et seq. This tax by itself has been significant but should not be considered to be enough in nature to provide the entire funding needed to construct the Boulevard System as laid out in this Plan. The CIP tax should be utilized in the same manner as it has for the Felix Street Streetscape project, in that a specific area was identified where the tax revenue could be used to help attain the final goal.

General Obligation Bonds This was the method of financing the original parkway system in the 1920s. A property tax was imposed on the entire City and Bonds were sold to construct the Parkway System. A vote of “super majority” of the citizens is required to increase the City’s debt levy and subsequent bond sales. General Obligation Bonds are typically a 20 year term which is the proposed timeline of this Plan. The General Obligation Bond could be used to benefit the entire City and could also identify other roadways that require immediate improvement due to recent development. This will be instrumental in the continuation of the extension of the Boulevard throughout the City, and ultimately reaching the goal of creating a necklace around the City. This type of long term land use planning will be crucial as will the consideration of annexation in the south and southeastern portion of the City as parts of the future planned extension of the Boulevard System is not located within the City at this time.

29 The Boulevard System Master Plan of the City of St. Joseph, Missouri

Neighborhood Improvement Districts (NID) The State Neighborhood Improvement District, or NID Act, provides the most effective way of providing upkeep and maintenance of existing or newly constructed parkway or boulevards. This method of financing is a property tax assessed on a group of properties that would adjoin the improvement or be within a five to ten block area of the improvement, basically in the neighborhood it would serve. People would be more inclined to participate in the NID as the parkway or boulevard that the tax revenue would apply to is nearby and they would experience a direct benefit from the tax. This again should be utilized primarily for the maintenance and upkeep of the Boulevard System in areas where needed.

Community Improvement District (CID) The creation of a Community Improvement District (CID), much like the NID, affords local control to the “area residents” or community in which the district is created. This procedure would establish it as a political subdivision or as a Not-for-Profit Corporation, thereby allowing the CID to collect sales tax within the district to be used for the funding of construction projects that are specifically identified within its legal boundaries. These identified projects may include city streets, but in some instances the State has been slow to join these districts. In addition to the collection of revenue by sales tax, a property tax can be assessed to provide additional revenue to be utilized toward the identified community projects.

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