Published by the District 7 Planning Council. Approved by the Council’s board of directors on July 29, 2005. Recommended by the Saint Paul Planning Commission on Month XX, 2005. Adopted by the Saint Paul City Council on Month XX, 2005.

Table of Contents

Acknowledgements ...... ii Summary ...... iii District Map ...... v

Background ...... 1

District Goals Recreation ...... 7 Community ...... 11 Land Use ...... 13 Housing ...... 16 Transportation ...... 19 Education ...... 25 Economic Development ...... 28

Sources ...... 31

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Acknowledgements The District 7 Planning Council gratefully acknowledges the time and wisdom of the people who have contributed to the creation of this plan.

The Area Plan Draft Review Committee Center for Urban and Regional Affairs Becky Errigo Greater Frogtown Community Development Corp. Kate Nesse Writer Neighborhood Program for Community Revitalization Soyini Guyton Graduate Research Assistant Resident and District 7 Planning Council Board Member The City of Saint Paul Seitu Jones Department of Planning and Economic Development Resident and Artist Shawntera Hardy Kristen Kidder City Planner Resident and District 7 Planning Council Executive Director Yang Zhang Tom Krebs City Planner Model Cities and District 7 Planning Council Board Member In addition, the Council would like to recognize the contributions of Patty Lammers the residents and business owners who participated in the focus groups Greater Frogtown Community Development Corp. and the research and reports of the students of the University of Minnesota and Macalester College. Dawn Nelson Resident and District 7 Planning Council Board Member

Sharon Paulson Resident and Saxon Ford Employee

Roxanne Schenzel Resident and Realtor

Barbara T. Stromer Resident, Dale Street Greenhouse Owner and District 7 Planning Council Board Member

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Summary

District 7, though made up of smaller City streets are arched with trees. settle in St. Paul. Its vitality comes from the neighborhoods each with its own character, Blocks’ small city lots are dotted with blending of established and new. Schools, has a strong identity. People living, working, houses and often anchored by corner stores. churches, community groups and neighbors or visiting the district know they are in a There are houses of one, two and three learn how to welcome, reach out, respect special part of Saint Paul. The effort over stories, some close to the sidewalks, others and adapt to new groups of people. Both the last 20 years to stem crime and improve sit in mid-lot and others set back toward the consciously and intuitively, the community safety has led to a connected and involved rear. An eclectic mix of homes: small scale tries to find common values and then put community, even after the problems eased. Victorians with gingerbread trim, solid them into words and actions. The Even so, there is a continual effort to engage square brick colonials, craftsman bungalows community resembles a "global village" a groups who, because of language barriers, and wooden cape cods fill the neighborhood. place that is safe, accepting, welcoming and transience or other factors, are not Front, back, side yards and boulevards are meeting the needs of people in all of life’s consistently engaged in neighborhood filled with flower and vegetable gardens. stages. development or civic processes. Kids are playing in yards and streets. Adults The area is economically, ethnically, Land use in District 7 is somewhat are taking leisurely strolls or walking educationally, linguistically and socially segregated. Light industrial use runs along purposely to public transportation, work, diverse. The community values comfortable the Pierce Butler Route, commercial use church or a store. Given this description, homes, safe streets, popular parks, inviting tends to congregate along the major you could be in a District 7 neighborhood in businesses and congenial neighbors. transportation corridors and residential use 1850 or in 2005. District 7 was part of the initial fills in the middle. In the coming years, You can tell it is 2005 because the march outward from downtown Saint Paul. community members see this melding with streets are wider, traffic is faster and Much of it has historically been home to more apartments and mixed-use buildings to residential blocks are lined with cars. Post immigrant and working class families. It complement commercial use on the trans- World War II bungalows, suburban style continues the tradition today as home to one portation corridors and more commercial ramblers, townhouses and clever newly of the nation’s largest Hmong populations. use focused on neighborhood residents constructed turn of the century replicas now Although District 7 has fewer parks sprinkled within the largely residential areas. fill empty lots and replace condemned and recreation facilities than other Saint Paul Housing in District 7 is primarily buildings. Recent immigrants speak Hmong, neighborhoods, the green space that is in the small-lot single family residences mixed Vietnamese, Somali, Cambodian and district is highly valued. Many of the with an occasional number of duplexes, Spanish rather than German, Polish or neighborhood streets are lined with trees and triplexes, and some large apartment Swedish. Church suppers now include egg the recreation centers and school buildings. Maintaining the character and rolls and tacos along with pork roast and playgrounds are well used. District 7 good condition of the existing homes and sauerkraut. community members are always on the encouraging the growth of new, quality, For more than 150 years District 7 lookout for new green space and recreation affordable housing is important to the has been one of the first places immigrants opportunities. community.

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Although the residents rely on public Affairs drafted seven goals with objectives transportation more than the average and action steps for the plan. The drafts resident of Saint Paul or the Twin Cities were reviewed and modified by a committee Metro Area, public transportation in the of residents, business owners, employees of district is less than adequate. The the City and non-profit organizations (see neighborhood would benefit from more bus Acknowledgements, page ii) to ensure routes and more extended schedules. constancy with district values. The Community members see education completed plan was reviewed in an open as a life-long pursuit. Some residents are neighborhood meeting and several small involved in gaining skills for employment gatherings. while others hope to learn a new subject or develop a hobby. Education from early childhood through young-adulthood is important to the district as over half the population of the district is under 25 years of age. Because of District 7’s diversity it is home to many ethnically owned and focused businesses. Some serve as local gathering places. However, there are many empty storefronts that residents would like to see filled by establishments that contribute to the economy and character of the neighborhood.

Community participation This plan was researched via a series of nine focus groups held between September 2004 and March 2005. The focus groups consisted of residents and business owners representing diverse groups within the neighborhood. In an effort to reach all segments of the neighborhood, one group was attended by a Hmong translator. Utilizing previous research and the community input, a graduate student from the Hubert H. Humphrey Institute of Public iv

District Map

All aerial maps: Minnesota Department of Administration. World Wide Web site http://www.lmic.state.mn.us/chouse/mnmapper.html/.

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Background converted to apartments, many of the streets, like Avon and Chatsworth, after District 7 is located northwest of the original buildings remain. British landmarks. His wife, a Yankee, felt downtown Saint Paul. It is bounded by The first residents were German that there ought to be at least one with an University Avenue on the south, the Great immigrants. While the successive groups of American name. She insisted on naming the Northern Railroad on the north, I-35 East on immigrants who have called this area home western most street after the first battle of the east, and Lexington Parkway on the have come from distant countries, they share the American Revolution, the Battle of west. It includes the East Midway, Thomas- the same aspirations of working for a secure Lexington (Empson 1975, 89). Dale/Frogtown, Capitol Heights, and Mt. home, being safe from want and having lives As the streets were laid and the lots desig- Airy neighborhoods. It is roughly 1.5 square full of friends and family. nated, new residents flowed in. Houses were miles and had 17,425 residents in 2000. As late as 1850, the area around the built on the lots without a comprehensive intersection of Thomas Avenue and Dale plan for the neighborhood. They were at History Street and south to University Avenue was different locations on the lots, with some predominantly marshy wetlands (Lanegran District 7 has been a “global right next to the sidewalk and others set at 1983, 28). A Sioux trail from Little Crow’s village.” Since long before the term became the back of the lot. They varied in size, too. village at Kaposia to lakes Johanna and a cliché people from around the world have Some residents built additions or second Josephine ran on the path of the present day molded the district over the past 150 years houses that could be rented for additional Lexington Parkway (Empson 1975, 89). into the distinctive cultural center and income (Joyce 1993, 37). The houses The westward expansion of the city hopeful, forward-looking community it is “scattered among the mud holes and was rapid. In 1854, L’Orient Street to today. Although it has been called “a plain choruses of frogs were quite remarkable” Western Avenue was the western most plat Jane neighborhood woefully deficient in (Lanegran 1983, 28). This was possibly the in this area of Saint Paul (Empson 1975, parks” (Ervin, 66), its modest homes, genesis of the name “Frogtown”. 161), by 1871, Lexington Parkway was the adapted and remodeled over the years for Because of the swampy ground in western most street of the City (Empson each new family, its corner stores, nestled the central part of the district, many of the 1975, 89). Most of the streets were named under second-floor apartments, and oak trees original houses began to sink (Lanegran for the developers who platted them and that canopy many neighborhood streets are 1983, 28). Some of the houses doubled as their kin. Lafond Avenue is named after the physical manifestations of the flow of places of business either with the storefront Benjamin Lafond who platted the street in life through the district. on the first floor and the residence on the 1858 (Empson 1975, 88). Thomas Avenue The cozy lots were platted beginning second or with the business in front and the was named by the developer James Stinson in the mid 1850s in the Mt. Airy residence in back (Joyce 1993, 27). On for his father, Thomas, in 1856 when he neighborhood and settlement of the area nearly every other corner there was a platted the area. The two were probably the continued westward until all the lots had neighborhood business. There are records of largest land owners in Ramsey County in the been divided and the streets named by 1880. cigar shops, confectioneries, groceries, nineteenth century (Empson 1975, 148). The original neighborhood was full of butchers, and taverns, among others (Joyce Not all the streets were named for the “mixed-use” with neighborhood shops on 1993, 27; Lanegran 1983, 28). Although friends and family of developers’. John nearly every other corner (Joyce 1993, 37). illegal until 1915, the taverns would often Wann, an Englishman, platted much of the Although some of these shops were western part of District 7 and named the 1

host boxing tournaments for a small purse in the fullest Germanic traditions” (Hiebert Places and the area turned out a few contenders 1999, 131). The charm of District 7 stems from (Lanegran 1983). Soon after, in 1959, construction was the architectural styles that have been The boxers, like the other residents underway in the Mt. Airy neighborhood on interpreted and reinterpreted over the years around the turn of the century, were largely the Mt. Airy Homes (Saint Paul Public through additions and remodeling as each Irish and German (Austro-Hungarian) with Housing). Unlike many other cities, Saint new occupant customized the home some Scandinavians and Poles (Joyce 1993). Paul’s urban renewal efforts mid-century (Lanegran 1983). The district was largely The communities were often centered were focused less on urban renewal efforts built to suit the needs of working-class around a church. The best known of these and more on the construction of town houses people. The modest size of the homes helps old churches is St. Agnes, a traditional (Saint Paul Public Housing). I-35 East was to keep the area more affordable than the German Catholic church founded in 1887. constructed at about the same time right next rest of St. Paul. However, in the past five The present St. Agnes Church building was to the development (Janicke 2000). years, house prices have been rising more completed in 1912 and sits across the street In the 1970s the older residents steeply in District 7 than in Saint Paul as a from the original site (Joyce 1993). It was began to die or move away and a new wave whole (Regional Multiple Listing Service). constructed in reverse, with its bell tower on of immigrants began to dominate the In addition, because most of the houses are the trolley line, Thomas Street, but the neighborhood, attracted by the same over 50 years old, and many over 100 entrance was located on the less crowded attributes that drew the original settlers: (Figure B-1), they require considerable and safer Lafond Street (Ervin). Trollies ran inexpensive, small lots and buildings (Huie maintenance. on Rice Street, Como Avenue, Dale Street, 1996). The 1970s were also the years when Thomas Avenue, Lexington Parkway, and more African-Americans moved into the University Avenue. The last streetcar trip in area after the Rondo Community was the Twin Cities was made in 1954 (Carlson displaced by the construction of I-94. 2004). The first locomotive ran on the Great Figure B-1. Construction Date of Residential Buildings Northern Railroad track in 1882 (Ramsey Source: Ramsey County via St. Paul GIS Consortium; map by Annika Schilke, Macalester College County Historical Society). Frogtown was an ideal location for the new immigrants, many of whom worked on the railroad. The

lots were small and inexpensive and close to residents’ jobs (Lanegran 1983). Many houses were passed down through families. In the mid-1950s, the Saint Paul Dispatch columnist Oliver Towne (a.k.a. Gareth Hiebert), wrote about wandering through Frogtown on a fall day and smelling “the aromas of baking bread, broiling sausages and sauerkraut, pot roast or roasting turkey 2

While many of the factors governing under-used. The Dale Street Shops, at the Asian, White and Black as well as a growing the real estate market are out of the control corner of Dale Street and Minnehaha Hispanic population. Asians make up over a of the district, two factors that contribute to Avenue, and the Minnehaha Mall, between more affordable housing are strengths of this Chatsworth and Milton streets on Figure B-2. Vacant, Rented and Owned area. The usual width for a single-unit Minnehaha Avenue, are not being used to Housing Units residential lot in District 7 is 40 feet wide their full capacity. The Dale Street Shops (although there are some smaller lots), the site is currently being redeveloped as an Percent of units that are vacant, rented and owned smallest width allowed for new construction industrial park (Rausch 2004) and in District 7. In the entire Twin Cities, about 70 by Saint Paul’s zoning code. The dwellings alternative uses for the Mall are being percent of units were owned, 27 percent rented, and also tend to have fewer rooms than houses in discussed. the vacancy rate was about 3 percent.

St. Paul as a whole. Together these factors Up-keep can be a challenge in any Number Percent of may help District 7 to remain more older neighborhood, but it is an especial of Units Total Units affordable than the rest of Saint Paul. challenge in District 7 where the rental rate Vacant 263 4.9 Roughly half of the housing in the is over twice that of the Twin Cities Metro area was built before 1920 (Figure B-1). The Area. In District 7 about 53 percent of the Rented 2,863 53.0 oldest buildings are in the Frogtown and units are rented, compared to 27 percent in Capitol Heights neighborhoods. Most are the Twin Cities Metro Area (Figure B-2). Owned 2,275 42.1 private residences. Ramsey County Only 42 percent are occupied by owners. Historical Society maintains a list of notable About 5 percent of the units are for rent, for Total Units 5,402 properties on their web site. The Society sale or otherwise unoccupied where as in the Source: US Census Bureau Census 2000 records the oldest standing houses near Rice entire Twin Cities, only about 3 percent of Street and Como Avenue. The Society also units are vacant. Although there are third of the population and Whites and mentions St. Adalbert’s Church at 256 responsible landlords and conscientious Blacks make up about a quarter a piece Charles Street, University Avenue renters, generally renters and landlords are (Figure B-3). Most of the Asian residents are Congregational Church at 868 Sherburne less invested in the up-keep and appearance Hmong immigrants from Laos (Figure B-4). Avenue, and the Beaux Arts Norwegian of their property, this presents a challenge The Hmong newcomers have brought with Evangelical Lutheran Church at 105 for the neighborhood in maintaining its them a colorful cultural background that has University Avenue, among other churches. buildings. enriched the community identity. St. Agnes Catholic Church, built in 1912, is the only building in the district on the People National Register of Historic Places, making District 7 is one of the most unique it eligible for additional funding and subject neighborhoods in Saint Paul. It has a rich to additional restrictions. blend of cultures and backgrounds that Mt. Airy Neighborhood hosts the Mt. contribute to the interest, vitality, and Airy Homes, one of the largest public excitement of the neighborhood experience. housing developments in Saint Paul. District District 7 has three primary racial groups: 7 also has two large sites that are currently 3

Children are a major part of the The City of Saint Paul projects about grow to about 18,122 by 2010 and 18,558 by district. About half of the population is a 4 percent increase in population by 2010 2020. District 7 is projected to grow by under 25 and 40 percent are under 18 and a 6.5 percent increase by 2020 (City of about 325 households by 2020 (City of St. (Figure B-5). This puts extraordinary Saint Paul, Land Use, 64). Assuming Paul Comprehensive Plan, 2002 and demand on the schools, recreation centers District 7 grows at the same rate, the 2000 Metropolitan Council Regional and other youth services. population of 17,425 can be expected to Development Forecasts 2030, n.d.)

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The increase in the city’s population will The median household income for necessitate the addition of housing and jobs residents in District 7 is about 50 percent of to the neighborhood. that for Twin Cities residents (Figure B-7). District 7 has been known for its In addition, primarily because of the number high crime rates. While the crime rates are of children in District 7 (Figure B-5), each still higher than most of Saint Paul, they are member of the workforce in the district must dropping. The decline is most precipitous in support a larger number of people. These property crimes (Figure B-6). The number additional demands on resources mean that of residential burglaries dropped by 28 the household income will go less far in percent between 1996 and 2003. Reports of meeting household expenses effectively. auto theft dropped by 43 percent and robbery dropped by half over the same period (Saint Paul Police 1997, 2003). These gains are remarkable but there is still room to improve. District 7 is still well above the average rate per capita in Saint Paul. District 7 has a long tradition as a gateway community for new immigrants and many of the issues associated with immigration are still relevant. About half of the residents are bilingual (compared to about 10 percent of Twin Cities Metro Area residents) but roughly 15 percent of the residents speak limited English (US Census Bureau Census 2000). In addition, about 34 percent of residents over 25 do not have a high school diploma and about 84 percent do not have a degree beyond high school (US Census Bureau Census 2000). Both of these present barriers to employment. District 7 residents average well below the Twin Cities average income and support a larger household. Part of the reason for the lower wage is that District 7 workers are disproportionately in low-wage and low-skill jobs.

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Perhaps because of low educational attainment and limited English language skills, District 7 workers are disproportionately working in low-wage occupations (Figure B-8). Most wage- earners in District 7 work in service, sales, or transportation jobs. These three areas have the lowest average wages (excluding farming, fishing and forestry). A significant portion of the workforce in the district uses public transportation to get to work. One challenge that faces the neighborhood, given its reliance on public transportation is the residents’ work schedules. According to the 2000 census, not only do residents leave for work in the morning but part of its workforce leaves in the afternoon, presumably for evening shifts. This unusual type of commute means that frequent transit options are needed throughout the day in District 7. District 7 continues to be a “global village.” Residents and other stakeholders continue to address challenges such as quality of life issues, crime, education, and employment, and there is evidence that their efforts are helping the area. Further investment by district stakeholders, the City of Saint Paul, and non-profits will support this positive trend. Recreation options must be expanded, the safety and quality of life for district residents must be improved, land in the neighborhood must be used to contribute to the well-being of the community, housing must address the needs of the diverse population of the district, the transportation options must be increased, education must address the needs of all residents from childhood through retirement, and businesses must contribute to the economic vibrancy of the district by both providing meaningful employment and addressing the needs of the district residents. 6

Goal 1: Recreation the Salvation Army have a religious focus, not appropriate to a public entity or sensitive Recreation options will meet the leisure desires of the residents and enhance the to the cultural differences in the community. visual appeal and natural resources of the neighborhood. Objective 1: Work with the sponsoring Action 1: Continue to participate in Community members of District 7 use organizations and partners to assure that meetings and help shape the public space in different ways. Some the proposed Kroc Center meets development of the Kroc Center. member’s desire places to play organized community expectations for openness and Action 2: As appropriate, involve other games, such as soccer. Others want a bench cultural sensitivity as well as having district councils and community and pocket of lawn to take their lunch to on programming that meets the needs and groups in the area to assure that a summer afternoon. Some folks just want a interests of community members. service delivery meets public barrier between them and the traffic as they The current proposal is derived from standards and programming meeting walk down the street. Meeting these a community developed plan. However, in community needs. objectives will improve the quality of life the reported discussions between the Collaborators: St. Paul Parks and for the District 7 neighborhood by Salvation Army and the City of St. Paul, the Recreation, Salvation Army, city council encouraging an active lifestyle and creating role of the community is unclear. Concerns members, adjacent district councils, youth and enhancing places for neighbors to gather have been raised that other programs run by serving organizations. and get to know each other.

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Objective 2: Increase the amount of recreational, natural landscape, and Action 3: Consider the conversion of vacant public space. lots smaller than 40 feet into pocket Because District 7 has been so parks, community gardens, or tot lots densely developed there is little land and ensure their continued available for the addition of new parks. maintenance. Collaborators: City of However, public open space is important to Saint Paul Department of Planning, community members’ quality of life. Saint Paul Parks and Recreation Currently District 7 hosts a neighborhood Department, private developers and Figure 1-2. Public Space park, two play fields adjoining elementary builders. Public space and buffers should be incorporated into schools, and three St. Paul Parks and the design of new construction and extensive remodeling. This can take many forms. An example Recreation Department recreation centers of public space is the sidewalk café shown below. It with play fields. Two of these are operated is screened from the street with trees and shrubs and and maintained by the City, while the third offers a neighborly social point. one is leased to and operated by a non- profit. All of these include playground equipment and some have basketball and tennis courts. Some private land, such as the Wilder complex, also includes play fields, playground equipment, and open green space. When new development occurs, whether it is carried out by a public agency or by a private developer, it is important to include recreational and social amenities. The form of this space may differ depending on the location of the development and it should complement the existing immediate neighborhood. Action 1: Encourage the inclusion of public or quasi-public space in all large- scale new development and extensive structure remodeling. Action 2: Add landscaped buffers, including boulevard gardens, between the sidewalk and road when roads are

remodeled. Illustrated by Kate Nesse 8

Objective 3: Provide recreation District 7 is home to a wide variety of Action 4: Advocate the development of opportunities that reflect the diversity of people with many differing needs. In quiet meditative space, possibly by cultures, ages, and resources in District 7. developing recreational options, care and returning some land to wetland. The district is home to three Parks attention must be paid to the recreational Collaborators: Saint Paul Parks and and Recreation Department recreation preferences of the many groups of people. Recreation Department, other recreation centers (West Minnehaha, Scheffer and Action 1: Include soccer fields in the centers and providers, youth programs, Valley) and may gain another recreation addition of amenities to recreation Minnesota Department of Natural center owned and administered by a non- centers. Resources. profit. These parks include fields that are Action 2: Maintain recreation options designed for baseball. Two are large enough affordable to neighborhood residents Objective 4: Connect the district to Saint that it can be used for football, soccer, and and encourage the addition of new Paul’s existing park system by extending other field sports as well (Figure 1-3). The leisure activities that are inexpensive current bike lanes and paths. recreation centers, as well as area schools or free. Currently there are no off-road bike currently offer programmed activities for Action 3: Provide programmed activities trails and a few on-road bike lanes within youth and adults. that appeal to area adults as well as the district. Many trails in the current bike system extend along a road from a city park but end as they approach the borders of the neighborhood. As District 7 is a central

youths.

9 neighborhood of St. Paul, extending these trails through the neighborhood will connect the residents with the city park system and give park users from around the city a connection between the city’s parks (Figure 1-1). Action 1: Extend the bike lane down Lexington Avenue and connect Como Park to the Mississippi River parks. Action 2: Extend the bike lane from Como Park along Como Avenue and connect it with the Gateway Trail that runs along 35 East. Action 3: Improve the bike lane on Pierce Butler Route by marking it well and extend it East onto Minnehaha Avenue West. Collaborators: Saint Paul Parks and Recreation Department, Minnesota Department of Transportation, Saint Paul Department of Public Works, bike groups

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Goal 2: Community

Community members will be involved in caring for each other and their shared surroundings, contributing to the diversity, safety, and vitality of the neighborhood.

District 7 has historically been a decisions and decision-making Collaborators: Greater Frogtown district with a strong identity. That identity processes that affect them. Community Development Corporation, has changed over the years, from a German Collaborators: District 7 Planning Council, District 7 Planning Council, former Catholic working class suburb of the city at existing block clubs, Saint Paul Police Frogtown Festival participants. the beginning of the century to a friendly Department home to young families in the middle of the century (Lanegran 1983). It became known Objective 2: Increase the numbers of ways for crime at the end of the twentieth century. in which residents can meet, work Figure 2-1. Community Event The rise of crime has brought the district together on common objectives, and Kids and adults work together on a “duck closer as community members joined expand the sense of community pond” at a community event at the together to make the area safer. involvement. This would include block Minnehaha Recreation Center. Building on this sense of community clubs, groups of people with other shared will not only improve safety in the district, it interests, and initiatives to solve will contribute in immeasurable ways to the particular problems or accomplish well-being of District 7 residents and objectives. businesses. Block clubs and other groups perform many functions. They may improve Objective 1: Establish District 7 as a safety, address common issues or threats, model for citizen involvement in all empower people to take action, increase a aspects of community life. sense of belonging and expand individual Action 1: Continue to research and and collective knowledge and skills. experiment with different modes of Currently District 7 has worked only with involving individuals and groups in block clubs that are assisted in becoming community planning, decision independent, self-organized groups to meet making, organizational and social local needs. There are nine formal blocks activities. clubs, half of which are active and meet Action 2: Continue to explore the methods regularly. by which residents can become aware of community activities and Action 1: Re-establish a neighborhood-wide informed about event organizing team. Photo Courtesy of District 7 Planning Council

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Objective 3: Involve non-resident among youth program providers to community members in neighborhood ensure efficient, high-quality and activities. diverse programming and a safe Business owners, their employees, environment for children. teachers, church members, and absentee Action 2: Re-establish the Frogtown landlords all have a stake in the well-being Networking Group and create a of District 7. They also have special forum, such as a newsletter, meeting, knowledge and resources that can be useful or web site, where the exchange of to the neighborhood. As both resources and information about programs and stakeholders their voices should be heard. initiatives between organizations is Currently there is a consistent effort to possible. involve business owners and they have been Action 3: Maintain a list of contacts at quite engaged in the community. neighborhood and city organizations Action 1: Specifically target advertising of and make it available to events and community meetings to organizations. these groups. Collaborators: District 7 Planning Council, Action 2: Collaborate with organizations West Minnehaha and Sheffer recreation that represent these groups, such as centers and providers, Greater Frogtown neighborhood businesses, churches Community Development Corporation and schools, to ensure their representation. Objective 5: Ensure the area’s health care Collaborators: District 7 Planning Council, providers are meeting the needs of the neighborhood churches, schools and residents, particularly those who are poor businesses or uninsured. Health care continues to rise in Objective 4: Ensure collaboration and importance and cost across the nation. It is a cooperation among organizations within particular issue in District 7 where just District 7. under half of the population is not in the There are many organizations within workforce (US Census Bureau Census 2000) the neighborhood that are working to and many households are earning well improve the area and the lives of its below the City’s median income. residents. Collaboration and sharing of Action 1: Establish a health care information will help to effectively serve the collaborative that communicates community members. regularly to address these issues. Action 1: Support the continued cooperation Collaborators: District 7 Planning Council, health care centers 12

Goal 3: Land Use highlight the salient features of the uses in Neighborhood land will be used to reflect the area’s history, its role in the City of the categories. In addition, they emphasize Saint Paul and the residents’ pride of place. the features that are important to the district: Multi-unit residential (RM1, RM2, RM3) Effective land use will meet the needs of Avenue will help to support the means two-story and taller apartment both residents and businesses. It will create development of land to compliment the use buildings that house a variety of family space for neighborhood jobs, meet the of public transit. sizes. majority of the consumption needs of The maps on this and the following page Residential (R1-4, RT1, RT2) indicates residents, and contribute positively to the demonstrate how land is currently used houses and duplexes housing between one district’s identity. It will mix business and (figure 3-1) and how the community hopes and three families on 40 to 60 foot lots. Both residential without creating nuisances for land will be developed (Figure 3-2). The high- and low-density residential are either. The use of land in District 7 should maps do not show how land is zoned, only sprinkled with neighborhood institutions like have a healthy impact on the quality of life how it is used. While the zoning of a churches and schools. in the district. particular parcel in the district must be High-density commercial (B4) refers to two- In spite of its high population density, land specific to the context of that lot, to give a story and taller buildings with retail on at is under-used in District 7. There are empty general picture of how land should be least the first floor and offices, residences, lots and a great deal of surface parking. developed in the future, Saint Paul’s zoning or retail on the upper floors. High-density Many of the major transportation corridors categories have been grouped in this section. commercial generally requires more auto are not developed as intensely as they might These broad-brush definitions are meant to traffic than neighborhood commercial. be. Increased transit options on University

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Neighborhood commercial (BC) refers to Light industrial (B5, I1) refers to buildings, parkland or a destination location may be of commercial uses located off of the major usually with larger footprints than any of the greater value to District & and the larger St. transportation corridors that serve primarily previous categories, that house businesses Paul community. neighborhood needs and require little involved in the manufacturing or assembly parking such as laundromats/dry cleaners, of products. Because these spaces are in Objective 1: Determine the best socio- corner grocery stores, and take-out pizza. such close proximity to residences, economic use of the Wilder and Mixed use (TN1, TN2, TN3) indicates the businesses are encouraged to minimize the Minnehaha Mall properties and close proximity of residential, retail, and nuisances, such as noise and noxious smells, determine which should be used for office space either in the same building or in sometimes associated with this type of land parklands and which for a "destination" neighboring buildings. These buildings are use. focus. generally two stories and taller and retail The two remaining substantial tracts of land Action 1: In cooperation with the city and occupies most of the street-level space. This in District 7 are the Minnehaha Mall which other community organizations, type of land use can be of varying densities. is underutilized and the Wilder site which obtain environmental and In combination with an improved may be vacated. Either or both sites may be topographical data to determine the transportation network, it will help to create more easily developed for housing or most appropriate use of each an urban village. commercial uses. However, this assessment location. of local needs indicates that the needs for

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Action 2: Convene a community=city group Collaborators: City of Saint Paul, Ramsey to advocate for best use of each site. Action 4: Advocate the creation of County Historical Society, Greater Action 3: Mobilize local residents to underground parking in large-scale Frogtown Community Development advocate on behalf of selected developments. Corporation, developers, property owners. positions. Collaborators: City of Saint Paul, Greater Collaborators: Greater Frogtown CDC, St. Frogtown Community Development Objective 4: Intensify the density of Paul Department of Parks and Recreation, Corporation, District 7 Planning Council, development along University Avenue, Minnesota Department of Natural developers, businesses Dale Street and Como Avenue. Resources, Minnesota Pollution Control Intensify development on major Agency, US Federal Environmental Objective 3: Preserve the character of the transportation corridors will bring both more Protection Agency. citizen based neighborhood and ensure its future jobs and more housing units to the area. It environmental groups, Headwaters success. will also help to convert the streets from car- Foundation. District 7 has a distinctive character, oriented thoroughfares to pedestrian-friendly rich in history. Its architecture, though commercial districts. The development Objective 2: Orient businesses to address modest, has an enduring beauty and the should minimize visual and physical barriers pedestrians, making the street experience regular organization of its streets through and facilitate communication by a pleasure for walkers. most of the neighborhood has a classic feel encouraging pedestrian circulation through Businesses benefit from more people that is comfortable to live with. Maintaining the district. walking by their establishments, pedestrians the strengths of the neighborhood is Action 1: On University Avenue, combine benefit from a safe and pleasant travel essential to the livability of the area. high-density multi-family residential experience. While some of the commercial Within District 7, the small with high-density commercial uses space is already developed, where there is neighborhoods have unique character. Mt. so that it responds to pedestrians, bus room for more development or remodeling, Airy, in spite of the high-rise is like a mini- and possible future light rail the resulting building should incorporate the suburb with curving streets and similar commuters. principles of pedestrian oriented design, housing types. Capitol Heights is an unusual Action 2: On Dale Street, create a including those described here. mix of institutional uses, historic homes and pedestrian friendly environment b y Action 1: Encourage buildings scaled to industrial buildings. Thomas-Dale/Frogtown increasing the density of commercial pedestrians with awnings and and East Midway are row after row of older, uses, particularly at the intersections fixtures that enhance the sidewalk distinctive working-class homes. and adding high-density multi-family experience so that people feel Action 1: Keep single-family residential lots residential units. comfortable walking. to the current standard and the blocks Action 3: On Como Avenue, increase the Action 2: Encourage parking at the back of a walkable length. density of commercial uses that respond to buildings. Action 2: Promote the rehabilitation and the area’s commercial and institutional Action 3: Encourage placing garages and preservation of older buildings. character. services on the alley for both Action 3: Create safer spaces through residential and commercial lighting and thoughtful design buildings. 15

Collaborators: City of Saint Paul, Greater Frogtown Community Development Corporation, SPARC, developers, businesses

Objective 5: Advocate for the extension of Pierce Butler Route along the existing BNSF railroad east to connect with Phalen Boulevard. For over 30 years, community members have supported the re-alignment and extension of Pierce Butler Route through District 7 area. Doing so will remove unwanted truck traffic from residential streets, while also creating needed east-west industrial corridor to span the city. Action 1: Continue to support Pierce Butler realignment and extension in multiple arenas. Action 2: Seek funding to implement the realignment. Collaborators: District 7 Planning Council, District 6 Planning Council, Greater Frogtown Community Development Corporation, SPARC, Great Northern Corridor, City of Saint Paul, Ramsey County, State of MN, Federal Government

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Goal 4: Housing

A variety of quality housing options will help the community be a diverse and need not leave the neighborhood when their inclusive part of Saint Paul. family structure changes.

To maintain the diversity in the increased from 1,021 to 1,276 sq ft, Objective 1: Promote investment in the District 7 community, it is important to suggesting that people are finishing district through an increase in house people at all stages of life and at many basements and attics to add more space homeownership for people with a variety different income levels. Quality housing is (Regional Multiple Listing Service 2005). of income levels and housing needs. one of the basic needs of every person. District 7 homes are generally smaller and Action 1: Support the efforts of the Greater In 1999, 73 houses were sold in less expensive than homes in other parts of Frogtown Community Development District 7, with an average sales price of Saint Paul. Most housing units are single- Corporation and other organizations $65,690 ($121,756 for St. Paul as a whole) unit homes on relatively small lots. The with similar goals to construct (Figure 4-1). In 2004, 75 houses were sold, district is central to the city and will become affordable housing for low-income and the average sales price is $144,438 even more connected with improved families in District 7. ($214,692 for Saint Paul as a whole). The transportation on University Avenue. Action 2: Encourage the creation of land increase in sale price rose much more These factors make the district trust properties to mitigate sharply in District 7 (about 120 percent), attractive to young families, however it is gentrification. than in Saint Paul as a whole (about 76 important to consider the housing needs of Action 3: Encourage housing rehabilitation percent). The average foundation size people at all stages of life and provide to help maintain existing housing remained the same in District 7 (762 vs. 766 options so people stock. sq ft), but the average finished area Action 4: Support programs that encourage residents to start on the path to homeownership and inform them about the process. Collaborators: Greater Frogtown Community Development Corporation, Homebuilders Outreach Foundation, Twin Cities Habitat for Humanity, Wilder Foundation, University of Minnesota, Urban Homeworks, District 7 Planning Council, state and federal programs

Objective 2: Promote understanding and cooperation between renters, owners and landlords.

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District 7 has slightly more renting households than owning households. Many landlords live on the property but some are absent. All three groups contribute to the flavor of the neighborhood but have different needs and concerns. While homeowners are concerned about long-term effects on their property and the district, renters often have a much shorter horizon. Landlords primary concern is that their properties remain rentable. Association among these groups can be effective in promoting understanding. It is important to help each group be good stewards of the neighborhood. Action 1: Support the emergence of homeowners’, renters’, and landlords’ associations and work with them to facilitate collaboration. Action 2: Through block clubs, facilitate a something that is more accessible for people in the district both physically and “Pride of the Neighborhood” with limited mobility. While roughly a third financially. association that can encourage of households have just one occupant, Collaborators: Greater Frogtown involvement in the district and work District 7 has a disproportionate Community Development Corporation, City on issues important to community number of households with six or more of Saint Paul, Federal Department of members. members compared to St. Paul (Figure 4-2). Housing and Urban Development, private Collaborators: homeowners, renters, Action 1: Encourage the construction of developers. landlords, ACORN, block clubs, tenant’s units with more than three bedrooms union, District 7 Planning Council that can house large families. Objective 4: Increase the number of Action 2: Encourage the construction of housing units in District 7. Objective 3: Ensure that there are a housings options that meet the needs District 7 is projected to grow by variety of housing types and prices so that of elderly residents, such as single- approximately 325 households by 2020 residents can find housing within the story townhomes and apartments in (City of Saint Paul Comprehensive Plan, district as their family structure changes. buildings with elevators and are near 2002; Metropolitan Council Regional District 7 currently has many small transportation. Development Forecasts 2030, n.d.). To single-family homes but is lacking Action 3: Maintain publicly assisted housing house this many people, District 7 will need inexpensive housing units for large families to construct more housing units. and units for elderly residents who need Action 1: Encourage infill housing that is in 18

keeping with the current aesthetic of the district. Action 2: Advocate the addition of multi- unit residences on high-traffic corridors like Dale Street.

Collaborators: City of Saint Paul, Greater Frogtown Community Development Corporation, private and non-profit developers

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Goal 5: Transportation orchestrating the public transportation A variety of transportation options will increase the mobility of all neighborhood options to take community members residents. where they need to go. Transportation is only as effective as Safe, timely and accessible Census 2000). Yet the neighborhood must far as it meets the needs of its potential transportation options, whether they are on also accommodate the cars and parking users. District 7 is served by ten bus routes. foot, bicycle, public transit or car, benefit all needs of the residents and visitors. Three of these have limited schedules, district residents as well as visitors. There are concerns in moving running during just one part of the day Residents of District 7 rely comparatively through and within the neighborhood. The (Figure 5-2). Most of the busses connecting more on their feet and the public busses serve disproportionately the east half downtown Minneapolis and downtown Saint transportation system to move about the of the district. The main streets in the Paul through the neighborhood (routes 3, 16, city. District 7 has a larger portion of neighborhood (Figure 5-3) can be 50, and 94) run frequently on weekdays. residents who take public transit to work – intimidating to cross for pedestrians. Parking Busses that connect to the north, south, or 12 percent – than the Twin Cities Metro is a continual concern for both the district’s both, (routes 62, 65, 67, 68, 76, and 262) run Area – 4.5 percent (US Census Bureau business patrons and its residents. less frequently. Service to the western half Census 2000). In addition, 26 percent of of the district is sorely lacking. Of the four households don’t have an available car, Objective 1: Better connect the district to routes that cross the area, one is an express compared to 8 percent in the entire Twin the rest of the Metro Area by carefully bus with a limited schedule (route 50), one Cities (US Census Bureau goes primarily south to West Saint Paul

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(route 67), one goes to downtown routes and their frequency though the and length of east-west bus routes. Minneapolis (route 16) and the fourth goes neighborhood. Action 4: Create a task force to follow the primarily north to the Rosedale Shopping Action 1: Advocate increasing the number potential change in transit on Center (route 65). Only route 16 runs more and frequency of north-south bus University Avenue (and elsewhere in frequently than every half hour on a regular routes between Dale and Lexington. District 7) to ensure that, should it be basis in the western half. Because the Action 2: Advocate increasing the number implemented, it meets the needs and residents of District 7 are unusually and frequency of busses connecting desires of neighborhood residents. dependent on public transportation, it would to Minneapolis. Collaborators: Twin Cities Metropolitan benefit the neighborhood to increase the Action 3: Advocate increasing the frequency Transit, District 7 Planning Council, University United, Metropolitan Council, Regional Rail Authority, other District Councils along University Avenue.

Objective 2: Make streets in the neighborhood safe for pedestrian, bike, and other non-auto travelers. Many streets in District 7, especially the main thoroughfares, University Avenue, Thomas Avenue, Minnehaha Avenue, Pierce Butler Route, Dale Street, Como Avenue, Rice Street and Jackson Street, do not have amenities to make the pedestrian feel safe or comfortable. In addition, while most neighborhood streets have landscaped buffers between the sidewalk and the street as well as on-street parking, the district continues to have problems with cars moving too fast for drivers to be well aware of pedestrian movement. This problem is of particular importance in District 7 because of the large number of children. While it is important to recognize the significance of cars in the transportation network and their need to navigate easily, it is imperative to ensure the safety of everyone else as well. Action 1: Advocate traffic calming measures

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on neighborhood streets, such as wider portions of Minnehaha Avenue. traffic islands, speed bumps, more Collaborators: City of Saint Paul, Twin dependence on on-street parking for the stop signs, or one-way streets. Cities Metropolitan Transit, Twin Cities patrons but when it is not carefully planned, Action 2: Advocate increasing safe cross Metropolitan Council, District 7 Planning it can also reduce the perceived density and walks on Dale Street which may Council walkability of the neighborhood. include increasing stop lights or District 7 has very few restrictions adding more designated cross walks Objective 3: Encourage parking that for on-street parking, especially on at intersections. enhances the business district without neighborhood streets. It has been adequate Action 3: Encourage including landscaped reducing the availability of parking for thus far since the neighborhood does not buffers with trees between the neighborhood residents. contain a major transportation mode. sidewalk and street when streets are It is essential to take care of the However, improved transit on University remodeled, particularly on Jackson parking needs of the neighborhood’s Avenue and additional bus routes through Street, Pierce Butler Route, Como residents. At the same time, it is important the neighborhood may bring park-and-ride Avenue and University Avenue. for the area to have adequate parking to visitors that could soon clog the Action 4: Advocate reducing the width of accommodate the patrons of the neighborhood’s parking space. streets at cross walks by bumping the neighborhood’s businesses. Action 1: Advocate restricting parking on curb out at that point or other Many businesses throughout the neighborhood streets by limiting measures, especially on Como neighborhood have parking next to or in parking time during the day for non- Avenue, University Avenue and the front of the buildings. This reduces the residents.

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Action 2: When new commercial property is designed or existing commercial property is remodeled, encourage placing parking at the back of buildings or when feasible, underground. Collaborators: City of Saint Paul, District 7 Planning Council, neighborhood businesses

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Goal 6: Education

Education will begin before kindergarten and continue throughout a lifetime, focusing on capacity building skills, personal development, citizenship and civic engagement and workforce development.

Education is essential for a school (New Spirit). In addition, there is a There are two locations that offer a productive and creative workforce. Beyond Saint Paul Public Library branch at the variety of extra-curricular and adult the necessities of basic reading and math corner of Lexington Parkway and University education. The Hubbs Center for Lifelong skills, education has the potential to Avenue (Lexington Outreach Branch). This Learning focuses on adult education. The introduce new thoughts and skills that branch is being replaced with an expanded Mt. Airy Community Center offers a variety expand people’s world and ideas. It is not branch at the corner of Dale and University of adult classes and after-school tutoring and just children that education can benefit. to open in 2006. (Both the current and new mentoring for children. Saint Paul Public People at every stage of life can be enriched branches are technically not in the district, Schools’ Community Education has by learning. since they are on the south side of locations in and around District 7. It offers a District 7 has two public elementary University Avenue, but will serve District 7 variety of classes for adults, including high- schools (Jackson and Franklin), a public residents.) Although there are no higher school equivalency test, English language high school (Creative Arts) as well as a education institutions in District 7, there are and many classes in arts, crafts and private elementary and high school (St. many with in walking distance or a short bus recreation. Agnes) and a charter elementary and middle ride.

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Objective 1: Ensure that every district Collaborators: Saint Paul Area Chamber of Action 1: Advocate developing pre- resident has the basic skills required for Commerce, The Minnesota Workforce kindergarten schooling within the employment. Center of Downtown Saint Paul, Saint Paul district. Every resident needs to have basic Public Schools’ Community Education, Action 2: Pair students with internships in reading and math skills and an District 7 Planning Council local businesses that will help the understanding of workplace conventions. gain skills and give them About 34 percent of District 7 residents over Objective 2: Help district children gain a responsibility. age 24 have less than a high school diploma, quality, well rounded education that will Action 3: Advocate the creation of more over twice the rate of Saint Paul as a whole, contribute to achieving their goals. after school programs including a 16 percent (Figure 6-2). Plus, about 15.5 Education is one of the key means to mentoring program for district percent of residents say they speak very improve the quality of life, expand teenagers. little English or do not speak it at all (US opportunities, and increase their adult Collaborators: Saint Paul Public Schools, Census Bureau Census 2000). earning potential. Childhood and young Saint Paul Public Library, Boys and Girls Action 1: Connect residents with education adult education is of particular importance in Club of the Twin Cities, District 7 Planning providers. District 7 because of the large population of Council, neighborhood kids, teens, parents, Action 2: Support the expansion of basic young people. Over a third of the population residents, businesses, Mt. Airy Community skills classes within the district. in District 7 is under the age of 18 and over Center, faith-based organizations, West Action 3: Continue to support the expansion half is under 25 years of age (Figure B-7; Minnehaha and Sheffer recreation centers, of technology resources, such as US Census Bureau Census 2000). Boy and Girl Scouts of America computers, in local schools and the library branch.

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Objective 3: Connect residents with opportunities that will enrich their lives and the community they live in. The purpose of education is not only to expand a person’s employment prospects. It also has the potential to foster understanding new ideas and cultures, to contribute to personal growth, and to just be fun. Action 1: Promote bi- and polylingualism by connecting residents with classes in the languages of their neighbors. Action 2: Advocate developing senior- focused classes and activities within the district. Action 3: Encourage adult programming at recreation centers in District 7. Action 4: Work to engage residents in civic dialogue and civic action to ensure all the voices of District 7 are represented in the political process. Collaborators: St. Paul Public Schools’ Continuing Education, Senior Housing, West Minnehaha Recreation Center, Sheffer Recreation Center, District 7 Planning Council

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Goal 7: Economic Development

Maintain and attract a mix of businesses that will fulfill the needs of the residents and contribute to meaningful employment in the area.

Businesses in District 7 contribute to needs and includes local entrepreneurs the character of the neighborhood. Ideally and home based businesses, local and Collaborators: University United, Midway they provide goods and services needed by regional businesses, national corporations Chamber of Commerce, Saint Paul Chamber residents and visitors. The success of that meet local employment and of Commerce, District 7 Planning Council, business enterprises in District 7 is integral consumer needs as well as those of the landlords, business owners, professionals, to the continued positive quality of life in non-profit and government sectors. banks the area. Commercial activity in District 7 is Action 1: Work with other organizations to Objective 2: Create a strong role for the most concentrated on University Avenue, determine the kinds of businesses District 7 neighborhoods in economic Dale Street, Rice Street, and Como Avenue. that will meet the needs of the local development that is occurring in and A few small businesses that serve primarily economy. adjacent to our geographic area so that the needs of residents within walking Action 2: Work with responsible entities to residents are informed and involved and distance are sprinkled throughout the meet needs and utilize existing developers have a forum for sharing their district. underused commercial property. plans. There are many programs around the Action 3: Support the revitalization of Action 1: Create a standing committee of Twin Cities that business owners and existing neighborhood business residents and business owners to entrepreneurs can take advantage of. Within networks, such as the Frogtown participate in economic development District 7, there is a business incubator. In Business Association. initiatives, to serve as liaisons to and addition there are several chambers of Action 4: Establish "preferential" purchasing from community organizations, and commerce that cover all or part of the policies to increase local to recommend additional economic district. The Greater Frogtown Community organizations’ use of local development activities in the area. Development Corporation serves businesses businesses. Action 2: Support The Greater Frogtown in the Frogtown area and Neighborhood Action 5: Encourage neighborhood residents Community Development Development Corporation serves people to become entrepreneurs. Corporation in strengthening its role throughout the Twin Cities interested in Action 6: Work with organizations and and increasing its staffing and starting their own business. individuals to create "destination financial resources to carry out locations" within the neighborhood commercial and business Objective 1: Develop a strong economy in economy to draw customers from development activities in District 7. the neighborhood that meets resident outside the area. Action 3: Continue to represent the interests of District 7 in on-going and ad hoc economic development initiatives 29

being undertaken by governmental, district to find ways to become Action 2: Coordinate business development non-profit and private organizations. “destination points” that will draw efforts on the Great Northern Collaborators: University United, Midway people from outside the district. Corridor sites with workforce Chamber of Commerce, City of Saint Paul, Collaborators: District 7 Planning Council, development efforts in the district. Neighborhood Development Corporation, City of Saint Paul, business organizations, Collaborators: District 7 Planning Council, Saint Paul Area Chamber of Commerce, ArtSpace, other arts associations, artists, City of Saint Paul, potential businesses other business development organizations, professionals, business owners District 7 Planning Council, Greater Frogtown CDC Objective 4: In the acquisition and development of commercial and Objective 3: Support neighborhood industrial sites, advocate the occupation businesses and professionals. of these sites by employers that will offer It is imperative that local good jobs and draw from the District 7 organizations demonstrate their appreciation labor pool. of the neighborhood businesses by Unemployment and under- patronizing them. While each business will employment continue to be a problem in certainly rely on their daily customer base District 7 yet with the comparatively large for economic stability, patronizing supply of commercial and industrial land; neighborhood businesses, particularly at there is an opportunity to alleviate the public meetings and events, is a potent situation. Not every employer will be a good gesture of goodwill and appreciation. There fit for the district. Residents are already are a number of artists living in District 7. employed in occupations that average the ArtSpace recently constructed artist live- lowest wages (Figure B-8). Encouraging the work housing at Elfelt Street and Blair use of the land by employers who will offer Avenue. living wages and benefits will be good for Action 1: Continue to use products and the community. Locating in District 7 will services bought within the be good for the employers because it will neighborhood at neighborhood encourage residents to train for those living- events. wage jobs, thereby creating a more skilled Action 2: Employ neighborhood artists in labor pool for the employer to draw from. the creation of public works projects, Action 1: Advocate the formation of a city- such as streets and parks, within the level committee to oversee the sale neighborhood. of the Minnehaha Mall site and the Action 3: Initiate a “buy local” campaign to occupation by a business that will highlight the goods and services draw from the district’s labor pool available to residents in District 7. and provide a living-wage job. Action 4: Encourage businesses in the 30

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