2003-164ORDNANCE NO. aOd-I
AN ORDINANCE OF THE CITY OF DENTON ADOPTING THE DOWNTOWN MASTER
PLAN, INCLUDING RECOMMENDATIONS AND IMPLEMENTATION ACTIONS FOR
DOWNTOWN AREA IMPROVEMENTS; AND PROVIDING AN EFFECTIVE DATE.
WHEREAS, the City of Denton has formulated a comprehensive plan adopted by the
City Council on December 7, 1999; and
WHEREAS, the Comprehensive Plan sets a framework for planning and strategy
development for the entire City of Denton, including a Small Area Planning Program, that
supplements the comprehensive plan with more detail necessary to guide everyday community
development decisions; and
WHEREAS, the City Council adopted the Small Area Planning Program on January 6,
1998; and
WHEREAS, the Downtown planning area is identified as the area bounded by University
Drive to the north, Locust Street and the Missouri-Pacific Railroad tracts to the east, Eagle Drive
to the south, and Carroll Blvd. and Elm Street to the west which is more particularly described in
Exhibit "A" attached hereto and made a part hereof by reference (the "Downtown Area"); and
WHEREAS, the Downtown Master Plan on file in the City's Planning Department, a
copy of which is attached hereto as Exhibit "B" and made a part hereof by reference (the
"Downtown Master Plan") is the fourth in a series of small area plans to build on the work of the
comprehensive plan; and
WHEREAS, through a review process with Downtown Area residents, business owners
and other area stakeholders, a framework of recommendations on future land use, transportation
and public improvements has been formulated to assist with future decision-making and case-by-
case development of the Downtown Area; and
WHEREAS, on May 14, 2003 the Planning and Zoning Commission conducted a public
hearing on the Downtown Master Plan and made its report and recommendations to the City
Council; and
WHEREAS, after conducting a public heating, the City Council finds that the Downtown
Master Plan is in the public interest; NOW, THEREFORE;
THE COUNCIL OF THE CITY OF DENTON HEREBY ORDAINS:
Section I. The findings and recitations contained in the preamble of this ordinance
are incorporated herein by reference
Section 2. The Denton City Council hereby adopts the Downtown Master Plan and
its recommendations.
Section 3.
approval.
PASSED AND APPROVED on this the ~'~-~day of O/,Gr/f_2
EUL1NE BROCK, MAYOR
This ordinance shall become effective immediately upon its passage and
,2003.
ATTEST:
JENNIFER WALTERS, CITY SECRETARY
APPROVED AS TO LEGAL FORM:
HERB~f~j~_CITY ATTORNEY
By: -~-''z''u ~
EXHIBIT "A"
The Downtown Master Plan study area, which includes the historic Courthouse Square, encompasses 440
acres (60 city blocks) and is home to more than 1,000 buildings.
CITY OF DENTON DOWNTOWN r4ASTER PLAN
PURPOSE OF THE PLAN
The city of Denton was
established i? 1857 at the location
where today s courthouse stands
and was incorporated in 1866.
As the city grew and prospered,
.
downtown became the city s
commercial center. While Denton
has grown from a city of only
26,844 people in 1960 to an of vital growth, providing jobs
estimated population of 86,550 and raising property values. They
also have brought a strong core
in
20O2,
the
Denton
downtown
has not shared in that growth and of small businesses, business
and civic centers, entertainment
prosperity.
districts, unique housing
opportunities, and cultural and
Nevertheless,
downtown
Denton
represents the very heart and artistic quarters. With one of
soul of the community- the
the
best
physical
cores
in
north
courthouse in its square is one central Texas, Denton is well
of the finest of its type in Texas,
positioned
to
design
a
downtown
and the square itself is an integral that functions as a vital business
part of the city-s culture. Festivals, and civic center, bustling with
celebrations, and other activities activity and investment. Historic downtown Denton.
are held in the square and among
its historic buildings.
Denton certainly has the
re. ruination of im do to
- some~ing many o~er
communities have accomplished
of these communities, the I..~
DRAFF 4/23/2003
CITY OF DENTON DOWNTOWN MASTER PLAN
Why This Plan Is Needed
This plan is intended to convert
the vision ora viral downtown
into reality. Simply planning for
a better downtown will not lead
to its success - it will require a
concerted effort by city leaders,
local businesses and residents,
and new investors. Fortunately,
the city has many of the tools
in place that can help create a
renewed downtown - appropriate
regulations, key strategic public
investments, and partnerships
with the public sector.
This plan is the result of studies
and workshops that envision a
downtown that functions as a
center of community business
and culture. A key component is
the set of strategies that will lead
to change - a process that builds
on success and encourages private
investments that are crucial to the
downtown's vitality.
This overlay of the Golden Tdangle Mall on top of Denton's downtown
shows that in both places the distance pedestrians walk are similar.
DRAFT4~23/2003
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CITY OF DENTON
How The Vision For
Downtown Was Created
As part of developing this plan,
two workshops were held with
stakeholders from the downtown
area. They were asked how they
would like the downtown to
change during the next 20 years.
The groups were divided into
tables of about eight people, and
each group was given a large-scale
map of the downtown. They were
asked to place "chips" (small
pieces of paper that contained
various kinds of buildings or uses)
on the map and draw the kinds
of improvements they would like
to see. In addition, the groups
were asked to design a street
cross section for the two common
street widths that dominate the
downtown - 60 feet and 80 feet of
fight-of-way.
The workshop results helped
focus and organize the approach
used for the plan. Participants
helped identify a set of key values
and visions that will help guide
the downtown into a more vital,
active, and pedestrian friendly
area that becomes a shining light
for the community.
The following section includes
a brief description of the
vision outlined during these
workshops and in discussions with
community leaders.
Participants work together at the
community workshop.
DOWNTOWN i~ASTER PLAN
DRAFT4/23~2003
CITY OF DENTON DOWNTOWN MASTER PLAN
A Vision For Downtown
Denton
Downtown Denton is an area with
great potential in all dimensions:
economic, cultural, historic
and social. This potential holds
great promise in the quest to
create a thriving, successful
downtown. Downtown Denton
can choose to add one or more
specific elements, e.g., a business
center, an entertainment center,
a conference center, a transit
hub, or residential development.
Whatever the specific project, it
should be evaluated in terms of
how that project contributes to
Denton's long-range vision for its
downtown.
A main goal of Denton's long-range vi-
sion is to have a linked park and open
space network.
The following are goals that
define the vision for downtown
Denton:
· Downtown should be a vital
part of Denton's economy. Each
year, there should be more jobs,
more retail sales, and higher
property values in downtown.
· Downtown should be a source
of civic pride. Downtown
should complement the historic
courthouse as something that
citizens of Denton can feel proud
of.
· Downtown should be a place to
live, work, and play. Downtown
should have residents, offices,
shops, and entertainment.
Everyone in Denton should
be able to see something in
downtown that is appealing and
interesting.
· Downtown should contain
compact and concentrated
activities. Developments and
infrastructure should reinforce
the sense of downtown as having
connected activities within a
single neighborhood.
· Downtown should contain a
variety of things to do. Everyone
in Denton should find several
things every year, if not every
month, that bring them to
downtown.
· Downtown should be
pedestrian friendly and an
enjoyable place to walk. All
of downtown needs to have
good pedestrian infrastructure,
including sidewalks, shade and
calm traffic.
· Downtown should have linked
parks and open spaces. Green
areas feel larger and more of
an amenity if they are linked.
Parks are venues for a variety of
activities as well as open space
amenities.
· Downtown should be attractive
and well designed. New
developments should increase
the overall quality of downtown.
In particular, buildings should be
durable, compatible with historic
structures, and reflect the local
community.
*Developments that meet
these goals are investments in
downtown Denton that create
value for future generations.
DRAFT ,i/23/2003
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CITY OF DENTON
Downtown Denton
Today
Denton's historic downtown
is a well-established and
prosperous central business
district. Denton's downtown
occupies approximately 440 acres.
Downtown is home to more than
1,000 buildings that provide
employment, eclectic shops,
unique restaurants, museums,
galleries, and live entertainment
venues for citizens and visitors
alike.
This 60-block area has as its
focal point the historic Denton
County Courthouse Square.
Recently a number of businesses
have renovated and reused
historic commercial buildings
on the square and have shown
great respect for the square's
character. In other instances,
however, renovations and
infill development have been
incompatible with the city's
aesthetic and functional objectives
- an alarming trend that has
surfaced as investment interest
rose in the area. Two corridors
(pairs of one-way streets)
extending from the square, the
Oak-Hickory corridor and the
Elm-Locust corridor are prime
candidates for redevelopment.
DRAFT4~23/2003
DOWNTOWN MASTER PLAN
Denton is the county seat of
Denton County, which is part of
the eight-county Dallas primary
metropolitan statistical area
(PMSA). According to the
2000 Census, Denton County's
population totaled 432,976, with
80,537 living in the city itself.
During the past 30 years, Denton
has grown at a slightly faster
annual compound growth rate
than the state did over the same
period. Denton County stands to
grow significantly during the next
decades.
Z?%
'El 5tr~.~ts
[] P~k~) Lots
I [] Footprints
34%
Physically, the downtown area is about 34% streets and street rights of way, and about
66% lots. Considering the downtown as a whole, 34% is streets, 23% is pa~king lots,
16% is covered by buildings, and 27% is in vegetation or landscaping.
CITY OF DENTON DOWNTOWN MASTER PLAN
Current Conditions
One of this plan's fundamental
goals is to achieve a balanced and
diverse mix of compatible uses. A
mix of housing, jobs, services and
attractions is necessary to shape
a vibrant and pedestrian-friendly
downtown. More than two-thirds
of the downtown is occupied by
commercial, retail and restaurant
uses. With less than 18 percent of
the downtown used for housing,
the area has fallen out of balance,
requiring people to travel into
and out of the downtown areas,
primarily by car. Developing a
variety of housing options within
the downtown and adjacent areas
means more people will be able
to use and appreciate the area.
A profile of downtown uses today.
DOWNTOWN PARKING
AND TRANSPORTATION
Many business owners, as well as
visitors to downtown, feel that
parking spaces are too few and far
between. Parking can feel limited,
especially during the afternoons
and evenings around the historic
square. The crunch is felt hardest
during special events and festivals,
such as Dog Days of Summer.
Parking plays an important role
in any downtown. This master
plan asks the following questions:
(1) is there a need for additional
parking supply, (2) is there a
solution to alleviate the parking
problem, and (3) is there really a
problem or just a perception of a
problem?
One of the first issues to address
in the downtown is that of
transportation and parking.
Downtown has excellent access
from the community but
generally is circumvented unless
it's the specific destination.
As a result, it doesn't have the
advantage of drive-by traffic, as
do areas along on major arterials
and freeways. On the other hand,
the slower, calmer pace of traffic
in the downtown make the streets
a potentially much more inviting
place to live, work or shop.
DRAWl ,U23/2003
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CITY OF DENTON
DOWNTOWN MASTER PLAN
The downtown's transportation
problems are not related to
through traffic or excessive
congestion. But even when the
plan is fully implemented, the
streets will have enough capacity
to accommodate the expected
traffic.
The main transportation
problems relate to parking
availability and alternative
modes important to downtowns
- walking and transit.
Downtown in Context
One of Downtown Denton's
strengths is its strategic location.
It lies directly between TWU and
UNT, the Denton Courthouse is
within 1 mile, and many civic and
federal uses are located within the
downtown's core. The downtown
is easily accessible by Interstate
or Surface Street and is equipped
with many cultural amenities in-
cluding a theater, an abundance
of shopping as well as civic parks.
Context Map of downtown Denton (study area
shown in beige).
DRAFT '112312003
CITY OF DENTON DOWNTOWN MASTER PLAN
Walking & Downtowns
While downtown Denton has
ample parking, the perception
among Denton residents is
that parking is limited - mainly
because they have unrealistic
expectations about trying
to park only at their specific
destination. There is a perceived
unwillingness to walk even a
block from the car to a particular
destination. But the reality is
that most downtowns, including
Denton's, would operate most
successfully with shared parking.
The advantage of traditional
downtowns like Denton's is that
there are many small shops
close together on a street. While
on street parking should be
maximized, it is impractical to
provide sufficient parking for
each store within a few feet of its
front door.
In fact, the distances needed to
walk in downtown Denton are
similar to those encountered in a
suburban shopping center - the
scale of these areas is often huge.
The Denton downtown plan encourages a pedestrian friendly environment,
As an example, the following
photos compare the downtown
core with the Golden Triangle
Mall which shows that parking at
the outskirts of the mall on a busy
day and walking its length would
cover over a mile in downtown,
within easy reach for any healthy
adult or child.
The difference in the perceived
distance is that while in the
parking lot, the mall provides a
clear target for the pedestrian
- and the perceived distance is
smaller. When inside the mall,
the area is full of amenities for
pedestrians - the environment is
shady and cool, there is seating
and food, and there are lots of
shops with interesting displays.
In fact, malls were designed to
replicate the environment of
successful downtowns.
Therefore, part of downtown's
success is through maximizing
on-street parking, and placing
sufficient parking facilities
throughout the downtown
in sufficient number to meet
parking demand.
DRAFT 4/23/2003
CITY OF DENTON DOWNTOWN I~ASTER PLAN
But part of that strategy is
to create a better walking
environment for the downtown
uses - creating shady, cool
streets with amenities and lots
of shops. Where there are not
shops along the street, clear visual
clues should lead the walker to
those areas that have the best
pedestrian ( and shopping) areas.
Parking Study
To address some of the many
parking and transportation
questions and issues, a study
was undertaken in December,
2001. Its goal was to measure the
quantity and location of parking
in downtown, along with an
examination of how the existing
spaces were being used. As part of
the study, downtown was divided
into blocks with both on- and off-
street parking inventoried. Spaces
were counted using the city of
Denton's Geographic Information
System (GIS) database. Counts
were double-checked against
aerial photography, and in several
cases, actual checks in the field
were made.
The inventory showed us
that there are nearly 10,800
parking spaces within Denton's
downtown. The majority (9,731)
DRAFT ,U2312002
is located within private parking
lots, followed by 751 on-street
parallel spaces and an additional
313 spaces of on-street diagonal
parking.
Survey takers walked sub-districts
of downtown at three different
times. The morning count
showed parking patterns related
to the morning journey to work.
The afternoon count found
parking patterns related to uses
during work hours and during
prime shopping hours. And
finally, the evening count told us
what people were doing after the
workday was done.
2003 2.70~3 3543
~ 3J76
~ 3~
~I 3 3~57
~12 3,~
~13 ~3 ~3
~14 3.737
~17 4~017 4243
~1~ a.ll0 4243
~I~ 4,~ 4243
'~1' 4.~I 4~3
Downtown Core Parking
Supply Over 20 Years
Add 4 Parking L01s
Add 4 StoD, PaCking Stn~eturc
Add 4 Sloo, I'arking Structure
Based on the forecast increase in demand, we recommend that surface lots
sufficient for 400 spaces (about 4 acres) be acquired in the next eight to 10 years,
with a size and configuration sufftcient to accommodate a parking structure.
CITY OF DENTON DOWNTOWN MASTER PLAN
Parking Use island. This total parcel-by-parcel
parking demand is estimated at
'~ } r~ Measuring Demand 11,947 spaces - for a theoretical :
Existing demand was measured deficit (demand minus supply)
against the existing supply of roughly 1,100 spaces. No
described above. For each parcel, doubt it comes as no surprise to
the total parking demand at many residents and businesses
any given time of day can be that Denton has a small deficit of
estimated. Parking demand was downtown parking. However, this
?~ ~,'~i~ ~/ ii generated by multiplying parking is not unusual in downtowns, and
generation rates, categorized many do quite well on even less
~ I if) ~ ~.'~ ~ by use, with building square parking.
I-~ L'~ ~ "ii footages. Inthesuburban
~ .(_~ ~( parking model, adding the peak The Downtown Core actually has
time of day parking demand for a surplus of parking - only 2,600
each parcel in the downtown spaces required and over 3,500
,, ~ available in the core area. Most
reveals the amount of parking
supply necessary to meet demand.
Since each major business
provides enough parking to
meet peak demand, each parcel
essentially fnnctions as a parking
Areas shown in red represent
limited parking supplJ~
Parking spaces on the square are important the businesses in the core, this plan will
not reduce tho number of existing spaces,
people going downtown look for ·
parking either at, or across the ·
street from, the historic square. ·
The parking study showed that ·
this area indeed operates at ·
close to maximum capacity at ·
several points throughout the ·
day. However, what many visitors ·
fail to notice are the many spaces ·
located just one or two blocks ·
away. Some are in private ·
lots that are not available after ·
hours, even though there is no ·
competing use. Clearly, a shared ·
parking system in the Downtown ·
core could gTeatly improve the ·
business climate. ·
·
CITY OF DENTON
Shared Parking
Parking can be viewed from two
different models: a suburban
model and a town-oriented or
shared model. In most suburban
settings, each individual business
provides enough parking to
satisfy its individual peak parking
demand. This is akin to each
individual household providing a
well for its individual water needs.
The unfortunate consequence
of this parking sitnation is
that for much of the day, most
parking supply sits unoccupied.
An office building, for example,
may need 30 parking spaces to
accommodate the peak parking
demand that occurs during
regular business hours, but after
6 p.m., nearly all these parking
spaces will sit unused. Ironically,
an adjacent restaurant may,
at 7 p.m., be reaching its own
parking peak with demand well
overstepping the restaurant's
on-site parking supply. In a town
setting where individual firms are
located close together, parking
can be used as a shared utility,
like a municipal water service.
This makes good business sense
as well - since people can park in
one location and visit a range of
nearby businesses. Employees in
an office building, for example,
may leave their cars parked
throughout the day and walk to a
nearby restaurant or to do some
shopping. Under this model, one
parking space easily can serve two
or three businesses.
Each land uae has its own unique parking demand curve.
DOWNTOWN MASTER PLAN
Parking Generation
Rates were obtained
from the Urban Land
Institute (ULI).
In the shared parking model,
each business shares its parking
to varying degrees. Parking can
be shared block by block, where
each block is a parking island,
or it can be shared as a common
area throughout the downtown.
Shared parking by block is
calculated by summing the total
demand of uses on the block and
measuring this at various times
of day. The time of day with the
highest total parking demand
is the block's peak demand. If
parking is shared on a block-
to-block basis downtown, 13%
percent fewer parking spaces are
required versus the suburban
model.
DRAFT 4/23/2003
CITY OF DENTON DOWNTOWN [qASTER PLAN
Shared Parking Policies No Sharing: Every use must provide parking for their individual peak demand.
and Decision~
Changing people s attitudes
toward shared parking may take
a bit of coaxing and convincing.
Like nearly anything in life,
convincing people to change
their old habits frequently ~ i :5, ,-. -- .... ?
meets with initial resistance. But
showing and explaining how
shared parking can create a better R
downtown for everyone should go
a long way toward helping people = = =o.I lb.=, I
overcome their reluctance to
Creating shared parking in the
Sharing: Parking supply us, meet the total pek of all adjacent land uses.
term
policies
0 Encourage sharing among
businesses and devise mechanisms
for addressing logistical issues.
Some businesses should share
parking at all times of day, while
other businesses should share
parking after their individual Shared Pa~king Utilization
peak time of day. Also, equity
issues may need to be resolved ~ 12,000 ..............
between existing businesses that ~ 8,om ~-----~/ ~ ~---]lD R~,.id0nflal
have either an oversupply or
undersupply of parking.
CITY OF DENTON DOWNTOWN I~IASTER PLAN
0 Encourage customers to
use shared parking. A signage
strategy may be needed to tell
drivers that parking is shared
among merchants and to point
the way to large, common parking
areas away from the town square.
O Establish municipal or
cooperative parking facilities.
Land currently owned by the City
of Denton could be improved
to provide parking, or new land
could be acquired.
O Identify critical parking areas
and encourage short-term
parking there. The conflict
be~veen employee and customer
parking downtown may need to
be addressed in such areas, since
employees tend to use spaces
for longer periods that may
discourage customer and tourist
use.
Lon~ policies may need to:
~ Plan for the appropriate
amount and location of necessary
parking supply. These decisions
will be based on the estimated
evaluation of need but also
will be based on site-by-site
considerations. These include
locating sites nearest to intense
parking demand and the type and
configuration of adjacent land
uses. (See table on page 9)
~ Determine the timing of
parking need. When should
land be purchased and parking
stn~ctures developed?
O Encourage walking. An
excellent way to encourage
customers to use one parking
space while visiting several
businesses is to encourage
walking. One way to do this is
by improving site design and
architecture to make walking a
pleasant, safe experience.
This mixed-use development is a perfect example of how a
multi-story parking garage can fit into an existing downtown.
DPAFT4123/2003
CITY OF DENTON DOWNTOWN MASTER PLAN
Parking Demand and
Solution
The area in most need of a
parking solution is the Downtown
Core. This area of about
100 acres is the heart of the
downtown. While other parts of
the downtown have sufficient off
street parking for most demand,
the core depends, more than
any other part of the downtown,
on a shared parking strategy.
Therefore, we recommend that
the strategy for additional parking
be focused on the core area.
2)
Encourage private parking
lots to be available to
the public after hours or
during off-peak times. An
example often seen in
other downtowns are bank
parking lots used after hours
as parking for restaurants
and entertainment venues.
Private parking lot owners
can be encouraged to
participate by having
neighboring businesses
provide liability insurance
and cleanup services during
off hours.
Shared parking strategies usually
depend on at least 15 percent to
25 percent of an area's parking
being available to the general
public. This can be achieved in
several ways, but the following are
some recommended strategies for
the Denton downtown plan:
1) Maximize on-street parking
by providing diagonal and
parallel parking spaces
where feasible. These spaces
should be time limited so
that downtown customers,
rather than employees or
business owners, use them.
$) Provide adequate public
off-street parking to handle
the shared parking demand.
While there presently is
adequate parking, with the
downtown's anticipated
growth, this supply will be
exhausted in eight or 10
years. Currenfly, there is
estimated demand for 2,600
in the downtown core, and
the supply is 3,400, Based
on the forecast increase
in demand (see chart on
page 9), we recommend
that surface lots sufficient
for 400 spaces (about 4
acres) be acquired in the
next eight to 10 years, with
a size and configuration
sufficient to accommodate
a parking structure. As the
downtown continues to
grow, parking structures
can be added over time.
Other cities have found that
including pedestrian-friendly
uses in the ground floor
(such as small cafes, shops
and services) is extremely
beneficial in eliminating the
"dead zone" that can occur
around a parking facility.
Develop parking facilities at
the edge of the "10-minute
walk" from Courthouse
Square - about half a
mile. This is the maximum
distance most people will
walk in the United States.
Designing the intervening
streets to be pedestrian-
friendly areas will encourage
shopping and strolling.
The parking facilities
can be fltnded throttgh
a tax increment district
or a public improvement
district, as detailed later.
DRAFT ,t/23/2003
CITY OF DENTON DOWNTOWN MASTER PLAN
The Downtown Master
Street Plan
At the core of this plan is
developing a way to use
downtown streets more
effectively. Streets take up about
34% percent of downtown
Denton's entire acreage, by
far the largest publicly owned
spaces in the downtown. They
are well designed for through
traffic but can be used much
more effectively for other uses.
Downtown streets should be
viewed as multiple-use facilities,
providing the following needs:
Routes for through traffic
Access to local businesses and
residents
Transit routes and stops
On-street parking
Pedestrian travel
Sidewalk activities, including
sidewalk seating for restaurants
and limited advertising and
merchandising.
Most of the streets downtown
have 80-foot rights-of-way, and
a few have 60-foot rights-of-way
(Austin, Walnut, Cedar, and
Pecan). The current typical cross
section has very wide travel lanes
with relatively narrow sidewalks.
There are few areas with trees
or shade and no comprehensive
design for shade or weather
protection. Also, there are few
streets that are wide enough for
sidewalk activities such as outdoor
eating and limited signage - the
kind of amenities that encourage
walking, shopping and an overall
lively atmosphere.
As part of the plan, there are
several alternative designs for
improving these important rights-
of-way. Each of these designs
makes more efficient use of the
available right-of-way, reallocating
Utilizing diagonal spaces ts an
wasted space into additional
parking or sidewalk width. In
addition, comprehensive shade
and weather protection Strategies
are envisioned, with a formal
street tree program and ways
to encourage shade-producing
awnings, porticoes and balconies.
In addition, a master street plan is
included that shows the ultimate
desired street cross section for
a particular street. While it will
take many years for all the streets
to be completed, this master
plan is intended to represent the
policy decision of what the street
ultimately should become. In this
way, annual street improvements
will provide constant upgrades
to the downtown environment,
as well as less disruption and
expense than if the improvements
occurred piecemeal.
efficient way to create additional parking.
CITY OF DOWNTOWN MASTER PLAN
DENTON. ~ v~v
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CITY OF DENTON
DOWNTOWN MASTER PLAN
Downtown Master Street Plan Cross-Sections
EXISTING 60FT ROW
RECOi~i~iENDED 60FT ROW #1
RECOI~I~ENDED 60FT ROW #2
RECOiVli~E~IDED 60FT ROW #3
DRAFT 4/23/2003
CITY OF DENTON DOWNTOWN MASTER PLAN
Downtown Master Street Plan Cross-Sections
EXISTING 80FT ROW
RECOMMENDED 80FT ROW #1
RECOMMENDED 80FT ROW #2
RECOMMENDED 80FT ROW
DRAFT ,1/23/2003
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CITY OF DENTON
Transit - Transit Center
and Other Opportunities
Today Denton's public
transportation system, LINK,
has many of its routes available
throughout the downtown,
as do most successful transit
systems. But the downtown's
role in LINK should be bolstered
further as future growth outlined
in this plan materializes -with
downto,m] becoming the primary
local transit hub for northern
Denton County. In addition, it
is planned in the long term that
commuter rail transit service
to Dallas will be extended to
Denton. It makes sense, then, to
begin planning for and designing
the transit facilities that will link
the downtown to the rest of the
community and to the rest of the
metroplex.
Local
Local transit service currently
provides the bulk of its service
to downtown. However, we
recommend that transit service in
the downtown be concentrated
on the streets leading to the
square, so that multiple lines
can converge. While we do not
DRAFT ,l/23/2003
DOWNTOWN I~ASTER PLAN
recommend a transit hub on
the square, many of the streets
just off the square provide good
opportunities. These streets
can be specially designed with
improved shelters and bus
pullouts to improve transit and
traffic service.
In addition, we recommend
implementing a "fareless square"
in the downtown area, so that
any bus can be ridden in the
downtown for short distances
without charge.
Existing transit route map.
Proposed "fare/ess square" map.
This map depicts transit streets which include: Oak, Hickory, Elm, and Locust.
CITY OF DENTON DOWNTOWN MASTER PLAN
Regional
Providing regional transit to the
downtown is an important link.
Regional and local transit services
should co nve rge at a sin gl e spo t, ·
where transit transfers can be
made and interaction between
buses, trams and train transit The transit center therefore will
can occur safely and easily. In
addition, train transit in Denton need to be a fairly substantial
probably will require substantial facility, with provision for train,
park-and-ride and drop off bus, auto, and pedestrian use. It
facilities, should be within walking distance
__ to the downtown core, but it
should be stffficiently removed
so that the heavy vehicle traffic
:-~:'~'~'.i~ ' ;~;~ does not disrupt the downtown
..... - t /[, environment.
i i ~ The ideal l°cati°n w°uld be the
old Denton Passenger Rail Station
- the historic train station for
Denton, originally constructed
in 1897 and demolished in 1960.
Above: Existing Conditions - Proposed Transit Center. Reconstructing the facility as a
Below: An example of an existing inter-modal transit cente~ totransitdowntownhUb wouldfor a providevariety ofaCcess
uses in the downtown, from the
proposed arts walk on Hickory
Street to a proposed downtown
conference center. At the same
time, the surrounding uses such
as City Hall East and the Denton
Courthouse would provide other
important access points.
CITY OF DENTON DOWNTOWN NASTER PLAN
ECONOMICS
A sound economic development
strategy is critical to the success
of Denton's downtown plan. A
strong economic development
strategy will enhance the
downtown's ability to attract
and recruit retail, office and
residential development. By
analyzing downtown Denton's
economic base - including growth
and decline in employment
sectors, zoning, analysis of
potential redevelopment sites,
market overviews and key
informant interviews - strategies
to induce development potential
and growth can be formulated.
These strategies outline
methods that will attract and
retain employment, encourage
redevelopment of under-used
sites, strengthen the downtown's
position as a center for regional
retail activities, and improve the
community's quality of life.
Procuring anchor projects
and undertaking streetscape
beautification are the first
steps tojumpstart economic
interest in downtown real
estate. Downtown Denton real
estate markets will respond
positively to these important
economic programs. Continued
assistance from the city - through
programs such as investments
in the public infrastructure and
amenities of the downtown,
cooperating in specific area plans,
project packaging assistance,
relaxing certain building code
requirements to stimulate upper
level housing, and other similar
public assistance techniques
- also will stimulate economic
growth.
A realistic assessment of the
market potential for Denton's
historic downtown area is a
critical element of the downtown
master plan. Knowing the types of
development most likely to occur
in the area will help guide local
planning decisions now and in
the future.
Based on Denton County central
appraisal district records, the total
square footage for the downtown
study area is about 2.6 million
square feet. Of this figure, 82
percent of the square footage
is commercial property, while
18 percent is residential. The
downtown area has remained
healthy with a relatively high
occupancy rate (90-100 percent),
especially in the historic square
(99-100 percent) district.
QI~AF7 4/23/2003
CITY OF DENTON DOWNTOWN MASTER PLAN
Forecast for Downtown
Growth
Forecasting the downtown's
possible growth during the
next 20 years is difficult. Under
current trends, the downtown
would see little change; and
perl]aps employment and
population would even decline.
However, this plan is intended to
increase the downtown's share
of Denton County's regional
prosperity. Developing this
plan requires making some
assumptions about how much
growth is reasonable for the
future. The assumptions we will
use are for 1.5 million square feet
of commercial building, 500 new
housing units, and 250 new hotel
rooms.
The range of possibilities is best
considered when the downtown
is seen in context with possible
employment growth in Denton
County. The county has tripled
in size in the last 20 years
- from a population of 146,000
in 1980 to more than 437,000
today. Employment grew even
faster, from 51,000 to 169,000
jobs during that same time
period. While there is no historic
downtown information in 1980,
the general consensus is that
downtown did not keep pace with
Denton County, growing little
during this time.
Denton County is forecast to
nearly double in size during
the next 20 years, growing
to a population of 757,000.
Employment is expected to keep
pace, growing to nearly 300,000
jobs by 2020.
This plan is intended to
increase the downtown's
share of Denton County's
regional prosperity.
Population & Employment Chart
Numeric Percent
Area 1995 2025 Growth Growth
City of Denton
Population 62,450 132,700 70,250 112%
Households 26,950 51,700 24,750 92%
Jobs 41,700 65,850 24, I50 58%
Denton County
Population 320,550 794,000 473,450 148%
Households 117,000 293,900 176,900 151%
Jobs 94,750 244,800 150,050 158%
DRAFT4~23~2003
CITY OF DENTON DOWNTOWN MASTER PLAN
While ~nuch attention is given to
the growth of manufacturing jobs,
most of the employment growth
(65 percent) will be in the fields
of services, retail, and financial,
insurance and real estate.
These are areas where healthy
downtowns traditionally can
compete with suburban locations
for a share of the new jobs
- healthy downtowns can absorb
from 15 percent to 30 percent of
regional job growth. Given the
forecast of 85,000 new jobs in this
sector, a 10 percent market share
is an attainable goal for Denton.
This would result in an increase
of 8,500jobs during a 20-year
period in the area covered by the
downtown plan, or about 425 new
jobs per year.
While there is no data for the
amount of growth that occurs
through infill or expansion of
existing buildings, experience
shows that 45 percent to 80
percent of new employment
growth in downtowns is absorbed
into existing buildings through
redevelopment. It appears
that Denton could absorb a
considerable amount of new
employment growth in existing
buildings, especially in second
floors, or by replacing existing
uses with more ones that are
DRAFT 4123/2003
more employment intensive.
As a result, we estimate that
about 50 percent of the new
employment growth will result in
new buildings, or approximately
1,500,000 new square feet in
building - about 75,000 square
feet per year, on average.
In addition, with the forecast
increase of more than 125,000
new households in Denton
County, there could be demand
for at least 1 percent for mixed-
use, downtown housing. In fact,
many urban areas now see from
3 percent to 5 percent of total
housing demand as part of the so-
called "urban" product - rentals
of condos in or near downtown
locations - from traditional
downtowns like Houston's, to
new downtowns such as Addison
Circle in the Dallas area. This
housing product is available in
small quantifies in downtown
Denton, but demand is strong,
Development Program Table
and other Texas cities have
had considerable success in
developing a downtown market,
The estimate, then, is that 500
to 1,000 units of downtown area
housing is reasonable.
As for hotels, we estimate that the
minimum of 250 rooms would
be attracted by a revitalized
downtown and would include
a conference and performing
arts center. For the purposes
of planning the land-use,
transportation and parking
needs of a revitalized downtown,
we have used the following
development program (see table
below).
While this is higher than what is
reflected in recent trends, this
amounts to only 8,500 jobs out of
a total of more than 130,000 in
the next 20 years. That represents
only 6.5 percent of the total.
Retail
?$,000
Total
1,175,700
1,675,000
CITY OF DENTON DOWNTOWN MASTER PLAN
SUB-AREA PLANS
One of the workshop results was
to divide the downtown plan
into sub- areas - since there are
several areas that are part of the
downtown but have different
circumstances, needs, policies
and investment opportunities.
There are two broad categories
of sub-areas: those that are
likely to undergo "little" change,
and those likely to see "major"
change.
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DRAFT 4/23/2003
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CITY OF DENTON
Sub-areas With Little
Change
Two sub-areas that likely will
undergo little change are the Elm
and Locust areas (a panhandle
that extends from the downtown
to University) and the Stroud
neighborhood (a fairly intact
neighborhood of homes in the
downtown area).
DRAFT ,t/23/2003
Elm and Locust Area
Elm and Locust streets will see
substantial redevelopment and
infill, especially with a revitalized
downtown. However, the
streetscape is well designed for
the area with sidewalks and street
trees, and the current Denton
Development Code provides
an appropriate mix of uses and
development standards. With
good access to the downtown and
TWU, it already fulfills its role as
a gateway to the downtown and
essentially is ready for additional
infill. Therefore, the plan has
little to add to this area that has
not already been done.
Stroud Neighborhood
The Stroud neighborhood is an
area of primarily single- family
homes. This neighborhood is
well developed, with potential
for small-scale residential infill.
DOWNTOWN NASTER PLAN
Sixnilarly to the Elm and Locust
area, it has appropriate zoning
and sufficient development
standards, and therefore needs
little additional work in this plan.
It will prosper as the downtown
is revitalized and develops but
should remain a quiet residential
area in the downtown.
The DR-I zoning
requirments should be
referenced for infill size
and density when
considering small-scale
residential infill in the
Stroud Neighborhood.
CiTY OF DENTON DOWNTOWN MASTER PLAN
Sub-areas With Major
Change
Denton Core
"Spotlight on Denton"
[] Major Advantages
Denton's core is the heart of the
downtown. It contains the most
successful group of business uses
and currently is the area with
the highest rents, indicating
the most success for locating
businesses. This core contains
historic buildings and some of
the best new buildings in the
downtown. Any revitalization will
need to start here and spread
outward. There are, however,
some significant issues that must
be addressed to expand the
downtown's vitality.
[] Major Problems
The downtown suffers from some
problems that prevent successful
revitalization from spreading
much beyond Courthouse
Square. One major problem is
the streetscape, which contains
few pedestrian amenities. Ideally,
the streetscape should provide
a basic range of amenities, such
as trees for shade, a wider variety
of uses and buildings near the
sidewalk, and some daily activity
on the sidewalks to spur greater
pedestrian movement. The plan
should address this area as a
beginning point.
The four narrow streets around
the square (list) have no street
trees but unfortunately do have
trash containers in the street
itself. Because they function in a
sense as alleys, with access to the
backs of buildings for delivery,
utilities, and waste, they provide
difficult design challenges. On
the plus side, they are very wide
for alleys and have business
frontages as well. These streets
need a comprehensive design
solution that will retain the access
needs of the businesses but
provide a pleasant environment
as well.
DRAFT4123/200J ·
CITY OF DENTON
In addition, this area is one proposed street improvements
of the few in downtown with will compliment the idea of a
a parking deficit throughout street for strolling, and this will
the day. Additional parking also lead to additional business
should be provided here first, development in the Downtown.
by redesigning the streets into
diagonal parking (increasing the Shared Parking
parking capacity by 50 percent) Proposed parking facilities have
and providing new public parking not been located, as they may
need to be purchased from
lots at the periphery of the core private parties. However, this plan
area. recommends acquiring public
parking areas at the periphery of
[] Proposed Plan the downtown core. In addition,
several current parking lots
Streetscape Solution have limited use during the day
The master street plan proposes but could be available in the
a design solution that improves evening. The plan recommends
the parking, trash and sidewalk developing city policies and
environment while retaining programs to encourage those
adequate traffic capacity. The business to provide public access
plan can accommodate on most parking after hours, in exchange
streets a capacity for activities for insurance coverage and lot
such as sidewalk seating for maintenance.
restaurants and some limited
merchandise displays that ~~~.
encourage walking. In some
areas, it also provides for =---:'-~_.~ -
consolidated waste containers,
which are screened from view..- :
· The Hickory Street Art Walk
· is a proposal that fits into ~ ~.,~, ~,-- ,~-
· this category - the idea is to
· enc°urage galleries' restaurants
and other uses to concentrate -'~
on Hickory Street - the ' -~'~'. ~' '. J~-
DOWNTOWN PIASTER PLAN
-~29r ,
//~.\
Dib4FT 4/23/2003
CITY OF DENTON DOWNTOWN MASTER PLAN
The active fountain
should be located within
a two block radius of
the square. It should be
situated in a plaza setting
of no less than io,ooo
square feet. Ideally it
would be fronted by two
story buildings occupied
by shops, small
businesses and housing.
Shade and Cool (Porticoes,
Awnings, Balconies)
Shading downtown streets is
essential in Denton's warm
climate. Traditionally, city cores
in hot climates have extensive
shade- producing devices,
such as awnings. In addition,
some downtowns allow or even
encourage the construction of
balconies or porticoes that extend
over the sidewalk, providing both
shade and additional square
footage to the buildings. These
require a permit for construction
in the public right-of-way, but
encourage the retail, hotel or
restaurant use in the second
stories - currently under used in
many existing buildings. While
it may not be appropriate in
Families enjoy cooling down in a public fountain.
Shade from an awning helps to create a
pleasant sidewalk cafe.
the historic square, on many
surrounding streets this would
provide both shade and an
inducement to invest in new or
redeveloped buildings.
Active Fountain
Many downtowns in hot climates
provide fountains as a way of
cooling the air, masking traffic
noise, and providing a gathering
spot. While it doesn't provide
a specific location, this plan
recommends that a fountain
be developed as a way to meet
all three goals. In recent years,
active interactive fountains have
become popular. These often
become popular gathering spots
in the summer, providing an
attraction to the community
for an entertaining evening
downtown. This facility would
greatly enhance the downtown
as a destination for people and
families in Denton.
CITY OF DENTON DOWNTOWN IqASTER PLAN
[] North Downtown which lend themselves to the
mixture of land uses envisioned
Major Advantages for this area.
The north downtown area has
many advantages - it proximity to The Civic Center provides a large
the core, Civic C:nter Park, TWU, green space, as well as civic uses,
and the popular Cupblard in the midst of the downtown
Natural Folds and Cafe area. The park uses in particular
(downtown s only grocery store), should be enhanced and the
It also is an area with lower rents, master plan for the Civic Center
providing opportunities for new park implemented.
businesses and residents.
Major Disadvantages
Its disadvantages include some
buildings that are under used and
somewhat mn down, a lack of a
defining character, and a poor
streetscape with narrow sidewalks.
Solution
This area lends itself to a mixture
of uses but is especially attractive
for residential or mixed uses. It
also is attractive for small offices,
again.with a complementary
mix of uses. The current
zoning permits this with fairly
liberal parking standards, and
with a slight increase in rents
redeveloping some parcels is
financially feasible.
The street improvements
proposed here primarily are
wider sidewalks and street trees,
Example of a mixed-use building in Houston, TX.
CITY OF DENTON DOWNTOWN I~ASTER PLAN
Above: £xample of a success furl confer-
ence and performing arts center,
Below: Location map of hotel and confer-
ence and performing arts center.
[] South Downtown
(Conference & Performing
Arts Center)
Major Advantages
The south downtown area has
some of the major advantages
in the downtown - it is relatively
undeveloped or has low value
buildings, is within easy walking
distance to the downtown and
is close to UNT. It currently has
some transit service and is close
to the new proposed transit
center at the Denton Passenger
Train Station. Because of this, it
has a high reinvestment potential.
In our redevelopment analysis,
this area would be most likely to
attract reinvestment.
Major Disadvantages
Conversely, this area also has the
greatest existing disadvantages.
Its current perception of low
value in the marketplace makes
reinvesUnent under existing
conditions unlikely. It has some
major infrastructure problems.
Like other areas in the downtown,
it would benefit from streetscape
improvements. However, it also
has major drainage and flooding
problems. When away from the
area's major streets, the casual
shopper has little incentive to
visit the area. Some of the uses
are somewhat incompatible with
a resurgent downtown, although
small- scale manufacturing could
co-exist with other downtown
USCS.
Solution
This area would benefit
most from a more proactive
approach by the City of Denton.
Assuming that a Tax Increment
Reinvestment Zone (TIRZ) is
formed, several major initiatives
would boost this area's potential.
, -,32 ,," ~
/ A\ DF~FF 412.?/2003
CITY OF DENTON DOWNTOWN iqASTER PLAN
and assemble sites in the
Acquire
This would allow the City to r2~,~~ ~?~-
resolve a long-standing flood [_ -
hazard and also to assemble /
sites for some of the larger uses 1
/
proposed in this plan. / '['~ -, ~, - ~ .. -
Denton has long expressed a
need and desire for a perfomi~g B~lo~: Co~em~c~ co~terex~m~les.
arm and conference center.
This area would be dose to the ~~ ~ -' ~~" ~ ~ ~--
do~town square and also to the I
transit center - pro.ding mutual
benefim for eye.one. A large site
could be assembled that would
make i~ development feasible. [ ' ~
It appears ~at further O From ~e standpoint of
investigation is well warranted.
A preliminary study by TIP
Strategies (Appendix B) reached
the following conclusions:
0 The size and strength of
the Denton economy strongly
suggests that more meeting space
would be beneficial to the city.
O The county is home to a
number of major corporations
that could serve as an excellent
source of meeting activity.
0 Most major employers
interviewed for this study
indicated an interest in using a
new meeting facility in the city.
attracting outside events, Denton
faces competition for convention
activity within the Metroplex.
0 Lack of a resort-quality hotel
presents another obstacle to
the success of a convention
and performing arts center in
Denton.
O There is a sufficient economic
base to support public events,
lectures, exhibitions and trade
shows.
O Parking was seen as a key
concern if such a facility were to
be located downtown.
0 The presence of a high-end
hotel could serve to create a
destination that would make the
area more attractive to meeting
planners.
DRAFT ,t/23/2003
CITY OF DENTON DOWNTOWN MASTER PLAN
..% ~,
Ae~ia/ photo of Downtown Denton.
· Our preliminary analysis
indicates that Denton should
proceed with a more detailed
study regarding the constn]ction
of a small convention or civic
center as part of its downtown
plan.
· However, there are several
conditions that should be met
to ensure the success of such a
facility, including: linkage to a
broader community plan (that
incorporates enhanced parking,
pedestrian access, and support
from surrounding amenities),
connection to a hotel, a flexible
and scalable design, and an
aggressive marketing plan.
Therefore, it would be an
important first step to develop
a financial strategy and support
mechanism for this facility.
Develop this area as a combined
conference center and
performing arts center, with
additional uses of a major hotel
and possible local museums
Assuming that the business plan
works, several sites could be
developed with the following
uses: a combined conference
and performing arts center, a
high quality hotel, and a local
museum. These could provide a
venue for some of the wide variety
cultural and entertainment
activities already in Denton many
of which are already experiencing
space issues. This investment
would provide a stimulus to the
immediate surrounding area, as
well as the rest of the downtown.
Streetscape solution: The
streetscape solution is to rebuild
the local streets with a cross
section that would add wider
sidewalks, street trees and
diagonal parking.
DRAFT ,~/23/2003
CITY OF DENTON DOWNTOWN MASTER PLAN
OVERALL BENEFITS OF
THE PLAN
If this plan is implemented,
there will be many benefits to the
downtown and to the entire city,
including the following:
The improvements anticipated by
this plan would cover 1.5 million
square feet, and be assessed at
over 125 million dollars.
While this has definite economic
advantages, the reasons to have a
vital downtown are also difficult
to quantify. Downtowns are a
source of community pride and
identity.
The Creative Industries. One
of the benefits of an active
downtown is that it tends to
attract people with a creative
bent. While different things
attract industries, one of the most
important in our technology
driven world is creativity. And
industries that need creative
people tend to locate in
communities that cater to them.
Austin, a good example of this
in Texas, attracts people with a
variety of amenities - a thriving
musical scene, ethnic and cultural
diversity, and great outdoor
recreation. The author Richard
Florida has ranked several cities
in regards to their ability to
attract creative people, and in
Texas, Austin, Dallas and Houston
all made the top ten (along with
such places as San Diego and
Chapel Hill, North Carolina.).
To quote Mr. Florida, "Places
that are successful in attracting
and retaining the creative class
prosper, those that fail don't."
The plan's implementation
would change the appearance
of the downtown, not radically,
but while keeping its essential
character, it would become
much more desirable and
attractive.
Employment would increase by
8,5oo, yielding an annual payroll
of over Szoo million dollars.
With two large universities, a head
start in music, and positioned
to provide the benefits of being
close to Dallas-Fort Worth
Metroplex without the headaches,
Denton can thrive as a center of
the creative industries - some of
the best paying in the future. A
thriving Downtown with places
to work, live, and play may be
much more valuable then just the
business it generates - it would
lift Denton on the radar screen of
places that creative people, and
the industries that employ them,
live and work.
A key benefit of the plan is the increase of employment
opportunities in the downtown area.
CITY OF DENTON DOWNTOWN i~tASTER PLAN
Street Stripe ,~ Ip~OYe~ents = ~@f~t I~OW
O N S
CITY OF DENTON
DOWNTOWN F~ASTER PLAN
E)~ I S TI N G CONDITIONS
37 ,
CITY OF DENTON DOWNTOWN I~iASTER PLAN
CITY OF DENTON DOWNTOWN MASTER PLAN
IMPLEMENTATION
Any plan is only as good as its
implementation. This plan is
designed to produce change.
Therefore, the challenge of
achieving the vision of the plan
falls to a step by step process that
builds momentum on its success.
If the first steps are not successful,
it will be difficult to maintain
momentum. Therefore, the plan
is designed to start with some
significant, but short term and
inexpensive steps. The plan then
lays a strategy for the financing of
the longer term, more significant
steps. These steps will be several
years away, but by then the
potential of the Downtown should
be obvious.
The Strategies are divided into
Regulations, Public Investments,
Long Term Improvements,
Partnerships, and Financing Tools
Regulation
Zoning
For this plan to be effective,
several key steps should be taken.
Often, downtown plans need to
undergo a major rezoning or
develop an entirely new zoning
code. However, since Denton
recently underwent a major
revision of its development
code, this is not necessary. This
presents a major advantage
that many cities do not enjoy.
Denton's current code permits
all the uses envisioned in the
plan and includes parking
and development standards
appropriate to downtown. The
only suggestion that should
be investigated is a special
development code for the
downtown core - those blocks
that face the square and the
surrounding "alley" streets. As
noted earlier, this is an area that
could benefit from more explicit
architectural g~tidelines. Specific
codes and ordinances resulting
from the plan require genuine
understanding and consensus by
stakeholders.
The incremental approach also
allows for adjustments in changes
to the market, to which ideas
are working, and to respond
to the changing economic
forces that will be at work in a
dynamic downtown. Like the
ancient martial art of jujitsu, the
momentum of the downtown
should be used to carry it forward
with more energy then starting
from a dead stop.
Dt~£T 4/23/2003
Mixed-use designs such as this, provide the setting for ffiendly interaction and
public safely in Downtown Denton.
39,~m
/~\
CITY OF DENTON DOWNTOWN MASTER PLAN
Sidewalk Use Regulation
Other regulatory changes that
should be implemented are those
that govern the use of the public
fights-of-way in the downtown.
These are of two types: those that
regulate and allow architectural
projections over the public
right-of-way (namely, arcades,
porticoes, and balconies),
and those that regulate the
temporary use of the sidewalk
for commercial enterprise (such
as sidewalk restaurants, signs,
displays of merchandise, and
vending carts).
This plan recommends that regulations
be adopted for permits that allow
sidewalk seating
· Architectural Projections
Permits
This plan encourages the
extension of shade- producing
structures over the sidewalk,
especially where those sidewalks
are widened to more than 10 feet.
While shallow awnings do not
need supports, shade protection
that covers the sidewalk often can
involve supports on the sidewalk
in the form of columns. These
should be permitted with certain
conditions, namely ensuring that
the public use of the sidewalk
continues, that there is sufficient
clearance both vertically and
horizontally, and that the
conditions for their temporary or
permanent removal is spelled out
when it applies to a public right-
of-way.
A balcony also may be formed to
provide shade and also a unique
seating area on the second
story. These often are useful for
restaurants and hotels and can
stimulate development within
second stories of buildings. These
structures should be covered by
a sidewalk use permit ordinance
that spells out the standards
and conditions of such uses and
strnctures.
· Sidewalk Use Permits
A second category is the use
of sidewalks for commercial
purposes. This is one of
the easiest ways to enliven a
downtown, since it draws people
and activity to the sidewalk areas.
Where sidewalk widths exceed 10
feet, narrow tables can be used
and still allow the minimum travel
width necessary (five or six feet
in most jurisdictions). When the
sidewalk is wider, an area can be
enclosed for full table seating. In
addition, some small "A-frame'
signs can be accommodated.
On a cautionary note, however,
this t?pe of signage should be
regulated. Competition for
customers may lead to chaos
and overly aggressive displays.
This plan recommends that
regulations be adopted for
permits that allow sidewalk
seating, specifying the location of
tables, the width of unobstructed
walking area, and the owner's
responsibilities for cleaning
and trash disposal. In addition,
regntiation of sidewalk signs
should be included in a sidewalk
use ordinance.
DRAFT,~/23/2003
CITY OF DENTON DOWNTOWN MASTER PLAN
Public Investment
A major opportunity for the City
to begin implementing this plan
is to invest in some small targeted
public improvements, while at the
same time laying the foundation
for the downtown to finance its
own improvements through a
TIRZ.
Short-term Improvement
The following should be funded
and implemented within the first
year of adopting this plan
[] Streetscape and trash
disposal in the "alley
streets" (Austin, Walnut,
Cedar, and Pecan)
These four streets show the most
potential for economic growth
and reinvestment. However, they
are hindered by the unattractive
streetscape, the lack of shade
and weather protection, narrow
sidewalks, and the location of
trash containers on the street.
The City should develop a
plan for consolidating trash
in each block and provide a
common, screened trash area.
DRAFT ,I/23/2003
The recommended sidewalk
and parking improvements
should be implemented as well,
bringing attention to that area
and stimulating investment.
This should be seen as a
demonstration project for the
downtown plan, along with
implementing sidewalk uses such
as outdoor seating and balconies.
This plan does not
advocate a major large-scale
investment - but rather
to create a strategy that
will allow the downtown's
growth and prosperity to
pay for investments.
An example of how trash can be consolidated within
each block by providing a common, screened area.
CITY OF DENTON DOWNTOWN MASTER PLAN
[] Transit
Currently, the LINK transit system
includes several routes that go
thorough the downtown. These
routes should be concentrated
on Locust, Elm, Hickory and
Oak streets, concentrating transit
service in the downtown and
increasing its frequency. These
streets, designated as "busways,"
should be next on the list for
improvements, including a
coordinated transit stop and
shelter program. The downtown
then should be declared a
"fareless square" that allows
riders a free ride within the
downtown area. For a minimal
cost the downtown can have the
functional equivalent of a shuttle,
and the transit system gets better
visibility and an introduction to
new users.
Preferred Routes to Downtown
[] Signage and Way Finding
The way finding map shows
the preferred routes between
downtown and major streets
in Denton. These should be
appropriately signed. On- street
parking should be advertised, and
public off-street spaces should be
advertised as well.
i
DRAFT ,U2312003
CITY OF DENTON
[] Festival Streets
,,The streets i,n, the square and the
alley streets around ,,t~e square
should,be designated festival
streets, with plans for closing
them to traffic for downtown
festivals, such as Dog Days. After
the streetscape improvements
mentioned above have been
made, these festivals are an
important tool for reintroducing
the downtown to Denton
residents and visitors. Additional
festival activities should be
scheduled severa times a year.
[] Farmer's Market
The festival streets and the
square should b,e the site of the
Denton farmer s market, which
is a traditional downtown activity.
In addition, a market that sells
local handcrafted goods during
the holiday season is an idea that
has become popular in other
~. ,~ downtowns.
Farmers markets help to stimulate the
I::(aila~CinOtneOr~mcYt,.oanTd provide a place for
,
DOWNTOWN MASTER PLAN
DRAFT 4/22/2003 / ~. \
CITY OF DENTON DOWNTOWN F4ASTER PLAN
Downtown is not currently
easily accessible from
the interstate. This plan
recommends smooth
curved roadways from
both Carroll Blvd. and
Dallas Drive to ease traffic
congestion on the south
end of Elm and Locust
Streets.
[] Access Improvements
Drawing people into the core
business district is crucial to
revitalizing Denton's downtown.
Therefore, fast and easy access is
imperative. It is necessary to get
everyone - residents, employees,
shoppers and visitors - in and
out of downtown quickly and
s[noothly. Roundabouts are
great tools to improve access to
Denton's Downtown. Modern
roundabouts are one of the safest
forms of traffic control in the
world; they slow vehicles and
provide refuges for pedestrians,
in addition to being aesthetically
pleasing. Roundabouts are a
popular alternative to signalized
intersections, and at many
locations they move traffic much
more efficiently and safely than
signals.
Current conditions - intersection of Eagle, Bell and Dallas Drive.
44
An example of a possible design for the
proposed roundabouL
A roundabout is recommended
at the junction of Eagle, Bell
and Dallas Drive, located in
the southeast comer of the
downtown. This intersection
is a perfect candidate for a
roundabout; it is a heavily
utilized entrance into the core.
Incorporating the roundabout
with the adjacent Dallas Drive
mil bridge could turn the site
into a landmark or gateway
into the downtown. Although
a roundabout is reccomended
it may be necessary to
explore alternate intersection
improvements.
DRAFT 't/23/2003
CiTY iF DENTON
term Improvements
Long
In the long term, there are
several activities that must be
undertaken if the downtown
is to reach its potential. Just as
a healthy downtown requires
an ongoing commitment from
the City, downtown itself must
develop some its own reliable
sources of income and energy.
Most successfnl downtowns may
be started by a city initiative,
but their success generates both
the income and the support
for continued involvement.
Therefore, while the short-
term activities are important,
a commitment for long-term
solutions is more important if the
downtown is to continue to grow
during the next 20 years. The
following activities are essential
over the long term:
[] Formation of a Tax
Increment Reinvestment
Zone (TIRZ)
As detailed below in the tools
section, formation of the TIRZ is
an important early step. Several
additional steps should be taken
first, including determining the
necessary studies to be done,
determining the location of the
DRAFJ '1/23/2003
DOWNTOWN I~tASTER PLAN
area's boundaries, developing a
specific plan that is part of the
TIRZ formation, and appointing
a board of directors to implement
the TIRZ. However, this plan
depends largely on the TIRZ
to develop fnnds for ongoing
improvements. The TIRZ also
creates an institutional downtown
structure that is important to
sustain downtown activities over
time.
[] Streetscape
After the initial streetscape
improvements, this plan
recommends that 800 linear
feet be improved per year,
drawing funds from the city's
transportation funds, the
TIRZ, and potentially from a
public improvement district
(PID) where needed. These
improvements should be directed
to that part of the downtown that
is most active in new investment
and economic growth, or where
the investment can be used to
leverage private investment.
[] Transit
With the formation of the Denton
County Transportation Authority,
transit will receive more attention
in Denton County. The downtown
can function both as a transit
hub, where local and regional
transit come together, and as a
source of riders and destinations.
Consolidating transit lines in
the downtown into bus ways and
the fareless square shonld be
expanded, and options such as
bus rapid transit (a bus system
that operates with some of the
advantages of rail based transit,
but at substantially lower costs)
should be investigated as a way to
enhance local transit service, as
well as the downtown.
Bus Rapid Transit (BRT) has many of the advantages
of a rail system at a greatly reduced cost.
CITY OF DENTON DOWNTOWN MASTER PLAN
[] Fountain
Placing an active fountain into
the downtown area is something
that should be seriously
considered in the long term.
The location is not specified,
as its construction must be
strategic. But there is no doubt
that a fountain will enhance
the downtown's attractiveness
to the community, improve
its environment (especially
during hot weather), and attract
residential uses in its vicinity.
[] Parking Lots and Parking
Structures
While there is sufficient
downtown parking in the short
term, there should be plans to
purchase additional surface lots
with income generated from the
TIRZ. These parking lots should
be developed as surface lots but
sized for parking structures.
Parking structures will become
necessary in 10 years as the
downtown's success brings in
more business, but the time to
purchase and plan for the land
required is in the near term,
before the need arises.
[] Arts and Conference
Center and Hotel
One of the most ambitious
parts of this plan is the idea of
developing and locating an arts
and conference center in the
south downtown. This warrants
additional examination, along
with developing a business plan
and pro-forma analysis for this
development. And assuming such
a center is feasible, the next step
is acquiring the site and selecting
a developer for the project.
While this may take many years to
implement, the complex process
and related activities should be
supported by the City initially (for
the studies) and eventually by the
TIRZ (for property acquisition
and packaging)
DRAFT ,U23/2003
CITY OF DENTON DOWNTOWN MASTER PLAN
- _
The "Point" in Denver is an example of partnership between two non-profits and public agencies.
Partnerships
The role of public and private
partnerships is an important
one for most successful
downtowns. In a sense, the
public investments should be
timed and located in areas where
the private sector is investing
or has indicated an interest in
investing. Public improvements
such as streetscapes, parking
facilities, or other improvements
can encourage or even
leverage private improvements
in the downtown. These
private improvements will
create increased property tax
assessments, which in turn
will create more revenue for
improvements under a TIRZ.
Therefore, the Gity should
develop and maintain a good
relationship with property
owners, investors, and developers
in the downtown so that it has
accurate information on where its
investments can be best leveraged
by private investments.
Another tool often used by local
governments in downtowns is
the Specific Area Plan. This
is a process where the local
government or downtown Board
of Directors develop a specific
plan, including some preliminary
architecture, for how parcels
will develop. This plan, when
adopted, allows construction to
commence with a simple building
permit application - all the
approvals have been processed
with the specific area plan. This
is usually done in partnership
with the property owners,
neighbors, other downto~
interests, and sometimes the
developer of the project. Costs
are often shared with the owners
and the developer. This allows
a coordinated and unified
vision to be developed without
any purchase of land by the
Downtown agency, and allows
develop to proceed in a manner
more compatible to the private
sector, without ignoring other
local interests. Best of all, once
the plan is complete, a certain
outcome and reduced red tape
brings stability to surrounding
neighbors and certainty to the
developers. This tool should be
prepared and readied, but its use
needs to be strategic, responding
to a short term need.
DRAFT4~23/2003
CITY OF DENTON DOWNTOWN MASTER PLAN
Financial Tools
Financing improvements and
services to implement the
downtown plan can be done
with either or both of two special
districts allowed under Texas
law. (There are several other
specialized financing mechanisms
for particular types of projects,
e.g., venues may be financed
with a variety of special taxes.
In addition, tax abatements
sometimes can be used effectively
for economic development).
The first special district is a tax
increment reinvestment zone
(TIRZ), in which all or part of
the tax revenue increase over the
base year is reinvested in public
infrastructure within the zone.
The TIRZ is the state legal term
for tax increment financing, used
in many cities and states. The
city council establishes the zone,
either from its owu initiative or
in response to a petition by the
property owners. The property
owners within the district pay the
same taxes as they would if the
zone did not exist; the difference
is that any increment over the
base year amount is set aside for
the purposes listed when the
TIRZ was established.
Tax increment financing is most
efficient when the project being
financed will generate most,
if not all, of the increment.
Project costs can include capital
costs (the acquisition and
constrnction of public works,
public improvements, new or
existing buildings, rehabilitation
costs, demolition, land and
clearance costs); financing costs
(including all interest); real
property assembly; relocation
costs; professional services;
and creation, organization and
administrative costs. Projects
that are implemented prior to
an increment being realized
often are financed by a developer
and later are reimbursed as an
increment is realized, or through
the issuance of bonds. Projects
also can be financed on a pay-as-
you-go basis.
The TIRZ will generate the most
revenue quickly if it is established
when property values are low
and when there is a single large
development within the zone that
will become feasible with the help
of the TIRZ improvements.
TIRZ's can be city-initiated,
if it consists of less than 10
percent residential land area,
or by a petition. TIRZ's that
are created by petition must be
submitted by owners of property
constituting more than 50
percent of the appraised value of
the area. Additional areas can be
annexed into the zone at a later
time through an initiative by the
City, if it meets the less than 10
percent residential nile, or by
property owners' petition.
Another key factor for a TIRZ is
the participation of more than
one taxing jurisdiction. If the
City is the only one, it is simpler
to have the City allocate the tax
increment each year and not set
up another layer. At a minimum,
the County needs to participate.
State law (Ch.311, Local
government code) mandates
the size and composition of the
board of directors for a TIRZ.
The City may delegate to the
board any powers granted under
state law, except for eminent
domain and taxing powers.
Powers include land-use controls,
in special cases; design standards;
recommendations for the
administration of the zone; and,
powers to implement a project
and financing plan.
DRAFT 412312003
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CITY OF DENTON
Public Improvement Districts
(PID), or their even more
powerful cousins, Municipal
Management Districts (MMD),
can provide infrastructure
and/or services. There is no
size restriction, and they can be
layered. They are limited only by
the willingness of property owners
to pay additional taxes. The PID is
established by a City in response
to a petition from the property
owners. The petition includes
the boundaries of the district, the
maximum tax rate, and a service
plan and budget describing the
purposes of the district.
MMDs are established by
the Texas Natural Resources
Conservation Commission in
response to a petition of the
property owners. The powers of
an MMD are broader than those
of a PID, but they are similar in
the fundamental idea of property
owners being allowed to tax
themselves additional amounts in
order to fund infrastructure and
services for a special district.
It is possible to combine both
a TIRZ and a PID or MMD.
This has been done in several
zones, for example, in the City
DRAFT W23/2003
of Houston. If the improvements
in Denton are a general package
of services and infrastructure, a
combination of PID/TIRZ might
be the best way to get the projects
built. The petitions for the TIRZ
and the PID are drawn up at the
same time, covering identical
areas. The PID has an "up to"
tax rate, with language added so
that the revenue from the TIRZ is
used to offset at least part of the
tax in future years. A combination
of special districts allows projects
to be financed, because the bonds
are backed by a tax. The property
owners have the assurance that
the PID tax will go down as the
tax increment revenue rises
because the Boards of Directors
of the PID and the TIRZ (which
can and should be overlapping)
represent, at least in part, the
property owners themselves.
It should be noted that these
districts and their associated
organizations do not have to be
the actual working partners. The
TIRZ and the PID can contract
with an appropriate nonprofit
entity, such as an association
of property owners within the
district, to carry out the program
of the district.
DOWNTOWN MASTER PLAN
State law allows several
mechanisms to finance economic
development. The PID/TIRZ
combination offers downtown
Denton an opportunity to
finance needed projects within
a framework of empowering the
property owners of the district.
//~
CITY OF DENTON DOWNTOWN MASTER PLAN
CONCLUSION
Jumping on the Cycle of
Success and Reward
This Plan constitutes an
ambitious vision for the
future as well as a plan
of action.
This plan constitutes an ambitions
vision and plan of action that
will transform downtown Denton
into a center of economic growth
and community pride. While
this may seem daunting at first,
it is important to proceed with
a sense of balance - enacting
an ambitious vision while also
proceeding thoughtfiflly and
cautiously. There is a cycle of
success and reward that should be
followed - with small, relatively
inexpensive steps taken at first,
evaluating their success, and
then taking larger, bolder steps
as confidence and knowledge
escalates. Even small changes
can build confidence in the
downtown's investment potential,
but nothing will be as effective
as the City's demonstration of a
long-term commitment to the
downtown's success. The best
way to sustain this is to create
and publicize a number of
successful projects. This is best
accomplished by a measured
approach, working in tandem
with private investors and
monitoring those ideas that work
best for Denton.
While this plan is ambitious and
bold, the unique place Denton
holds in north central Texas, its
historic character, the artistic
nature of the Denton community,
and the robust growth of this
area all bode well for the plan's
success. With the appearance of
smaller "new" downtowns in the
snburban areas around Denton, it
is clear that the time has come for
the unique benefits of a central
downtown to be part of the area's
prosperity. Now is the time for
downtown Denton to take its
place as the preeminent urban
center of North Central Texas.
DI~FT 4/23/2003