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HomeMy WebLinkAboutR-1990-D5857 Urban area Downtown plan• • TA RESOLUTION NO.fl 5857 A RESOLUTION adopting an amendment to the Comprehensive Plan for the City of Yakima. WHEREAS, the City.Council pursuant to Section 1.42.070B of the City of Yakima Municipal Code desires to amend its Comprehensive Plan and has heretofore by motion referred to the Yakima Urban Area Regional Planning Commission the follow- ing documents, hereinafter collectively called "Yakima Down- town Futures Plan: 1990 - 2000": * Summary Report -The Yakima Down- town Futures Plan: 1990 - 2000 Summary Hearing Draft by the City of Yakima Department of Community & Economic Development * Central Business District Market Share and Regional Economic Base Study, August 21, 1987 by Bucher, Willis & Ratcliff Consulting Engineers, Planners, and Architects * Yakima Central Business District Consultant Recommendations for: Circulation, Parking, and Public Transit Services, July 14, 1990, prepared by the Transpo Group, Inc. * Yakima Downtown Housing Plan, May 1990, prepared by the Department of Community and Economic Development - Office of Planning and Neighborhood Conservation of the City of Yakima The Yakima Downtown Futures Plan: 1990 - 2000 - Urban Design Element prepared by the Kasprisin Design Group; and WHEREAS, the Yakima Urban Area Regional Planning Commis- sion held public hearings on August 30 and September 20, 1989 after due public notice for the purpose of considering the Yakima Downtown Futures Plan: 1990 - 2000; and WHEREAS, the Yakima Urban Area Joint Board held public meetings on October 12 and December 15, 1989 for the purpose of considering the recommendations of the Yakima Urban Area (res/ftrsplan.jv) Regional Planning Commission pertaining to the adoption of the Yakima Downtown Futures Plan: 1990 - 2000; and WHEREAS, after due public notice, the City Council held a public hearing on November 27, 1990 for the purpose of consid- ering the Yakima Downtown Futures Plan: 1990 - 2000 and the findings and recommendations of both the Yakima Urban Area Joint Board and the Yakima Urban Area Regional Planning Com- mission; and WHEREAS, the City Council does not wish to adopt any change or modification to the Yakima Downtown Futures Plan: 1990 - 2000; and WHEREAS, the City Council finds that the Yakima Downtown Futures Plan: 1990 - 2000 is consistent with the City's Urban Area Zoning Ordinance, Title 15 of the City of Yakima Munici- pal Code and the Yakima Urban Area Comprehensive Plan as heretofore adopted by Ordinance No. 2579 of the City of Yaki- ma, now, therefore, BE IT •RESOLVED BY THE CITY COUNCIL OF THE CITY OF YAKIMA: Section 1: The Comprehensive Plan of the City of Yakima adopted by Ordinance No. 2579 of the City of Yakima and codi- fied as Section 1.42.070A of the City of Yakima Municipal Code is amended to include the Yakima Downtown Futures Plan: 1990 - 2000 which shall consist of. * Summary Report -The Yakima Down- town Futures Plan: 1990 - 2000 Summary Hearing Draft by Yakima Department of Community and Economic Development * Central Business District Market Share and Regional Economic Base Study, August 21, 1987 by Bucher, Willis & Ratcliff Consulting Engineers, Planners, and Architects * Yakima Central Business District Consultant Recommendations for: Circulation, Parking, and Public Transit Services, July 14, 1990, prepared by the Transpo Group, Inc. * Yakima Downtown Housing Plan, May 1990, prepared by the Department - 2 - (res/ftrsplan.jv) • • of Community and Economic Development - Office of Planning and Neighborhood Conservation of the City of Yakima * The Yakima Downtown Futures Plan: 1990 - 2000 - Urban Design Element prepared by the Kasprisin Design Group; and of which one or more copies are on file in the Office of the Yakima City Clerk. In the event of conflicts on inconsisten- cies with the existing Comprehensive Plan, it is the intent of the City Council that the aforementioned amendment shall govern. Section 2: The aforementioned amendment is hereby certi- fied as an amendment to the Comprehensive Plan of the City of Yakima. ADOPTED BY THE CITY COUNCIL this 8" day of December, 1990. ATTEST: City Clerk (res/ftrsplan.jv) 6;;ie )45444e - Mayor SUMMARY REPORT THE YAKIMA DOWNTOWN FUTURES PLAN: 1990 - 2000 PUBLIC HEARING DRAFT CITY OF YAKIMA, WASHINGTON Department of Community Development SUMMARY REPORT THE YAKIMA DOWNTOWN FUTURES PLAN: 1990-2000 Public Hearing Draft August 18, 1989 Prepared by: The City of Yakima Department of Community and Economic Development For Public Hearing Review by Yakima Urban Ares Regional Planning Commission and 'akima City Council CITY OF YAKIMA MISSION THE MISSION OF THE CITY OF YAKIMA IS TO PROVIDE SUPERIOR SERVICES AND PUBLIC FACILITIES FOR THE PEOPLE, BUSINESSES AND INSTITUTIONS WITHIN THE CITY BOUNDARIES, OR WHERE LEGALLY OBLIGATED TO PROVIDE URBAN SERVICES, IN ORDER TO ENHANCE THE QUALITY OF LIFE AND ECONOMIC ENVIRONMENT, WITHIN THE COMMUNITY'S WILLINGNESS AND ABILITY TO PAY. VISION SOCIAL, CULTURAL, EDUCATIONAL, RECREATIONAL, AND DIVERSIFIED ECONOMIC CENTER FOR THE 1-82 CORRIDOR CLEAN, SAFE AND AESTHETICALLY PLEASING ENVIRONMENT PROGRESSIVE, EQUITABLE AND RESPONSIVE CITY LEADERSHIP DEPENDABLE AND COST EFFECTIVE MUNICIPAL SERVICES ON A PER CAPITA BASIS CHALLENGING AND SUPPORTIVE WORK ENVIRONMENT, PROMOTING EQUAL OPPORTUNITY, WITH MOTIVATED, EFFECTIVE EMPLOYEES RECOGNIZED FOR THEIR CONTRIBUTIONS AND EXPERTISE As adopted 5/9/89 TABLE OF CONTENTS INTRODUCTION PLANNING STUDIES 3 CBD STUDY AREA 5 PLAN OBJECTIVES 7 CHAPTER 1 ECONOMIC ANALYSIS INTRODUCTION 9 THE YAKIMA CBD MARKET 9 KEY ECONOMIC ISSUES 15 CHAPTER 2 TRANSPORTATION INTRODUCTION TRAFFIC PARKING TRANSIT CHAPTER 3 DOWNTOWN HOUSING 16 17 28 32 INTRODUCTION 35 EXISTING CONDITIONS 36 EXISTING RESIDENTIAL LAND USE 37 RECOMMENDED ACTIONS 41 CHAPTER 4 URBAN DESIGN INTRODUCTION 43 EXISTING FEATURES AND IMAGES 44 DESIGN STATEMENT AND GUIDELINES 47 CHAPTER 5 LAND USE INTRODUCTION 51 DOWNTOWN SUB -DISTRICTS 52 KEY LAND USE ISSUES 56 PREFERRED LAND USE PLAN 59 CHAPTER 6 DEVELOPMENT OPPORTUNITIES BD/PLNN CBD Plan TCC CHAPTER 7 CAPITAL IMPROVEMENT PROGRAM PROJECTS BD/PLNN CBD Pian TCC PAGE 63 \,.__ ,s,_ _ , r- N. r -z. t4 ..* 1rLi�t■1■.1■■�1111■■ 1 tri-- 11�► 1:■��:11i 1���ii���� ■■■ • �i • IhOsta iiii a- 91674M-raitila 40Vot ■ i.1a1Mll1r1—•Mileokl. ttt.ttllr it•+ 1■ lVl111i1l1li1tPltla �: ' � -_ � -' ilegsilWth�CII:1p������ � ���,�����{�N�`\111111 ■1'� l -__,t _,;� . �. ,� 1.1IIIILSETthn1�vlll r1 ■ ■11 �� �i11ihiihti— jaiiniU,iaiuIl�III�1�11����•�!.��■ /1 driMINIIIIIII Eiralingnighlffiiittt1; . I � ``■ %flumill111111131111111iii ■1I _ gi �� �ha A ''��_n IIM1MI1IIIMIIII11111 ;1I`:'1��3tn■ r I- 1 IMII11111 ■1111 -•� All 1 111111111■ 111111 11 �Lllll�ia�" ■I Izil_�11111r11III "� , MIN Alul O �ali irai11 II.`;,� STUDY AREA •moi,; .. CITY OF YAKIMA �Q 1101200 2400 scale in feet SUMMARY REPORT YAKIMA DOWNTOWN FUTURES PLAN: 1990-2000 INTRODUCTION The Yakima Central Business District (CBD) occupies the dominant marketing position in Central Washington State. It is not only the single largest shopping district between Seattle and Spokane, but is also the dominant center for finance, professional services, governmental functions, conventions and social and cultural activities. It is the City of Yakima's declared policy to continue to maintain and enhance this position. The most recent downtown plan for the Yakima Central Business District was adopted in 1967, some 22 years ago. Since that time, major changes have occurred effecting the needs and focus of Yakima's Downtown. These changes have not only brought increased strength and prosperity to the Central Business District, but also point out the need for future planning and policy development to guide the future of the Central Business District. It is particularly appropriate at this time, as Yakima is poised for major growth through the 1990's, that a plan be developed to guide the future of the Yakima Central Business District. The Plan will guide both pjivate and municipal decision making and development to maintain and enhance the function of the Yakima Central Business District. BD-Plnn CBD Plan-S.R. 1 8/4/89 1 The development of this Yakima Downtown Futures Plan has been a joint effort of the City of Yakima, the Downtown merchants and property owners, and the citizens of Yakima. Special acknowledgment must be given to the downtown merchants, property owners, and interested citizens who originally formed an ad hoc advisory committee that became known as the Downtown Group. The Downtown Group includes members and representatives of the Yakima Chamber of Commerce, West Side Merchants Association, North Front Street Association, Yakima Mall Merchants Association, and a number of other associations, community service organizations and citizen interest groups. In 1988, elements of the Downtown Group formed the Yakima Central Business District Association to more formally represent the interests of downtown merchants and property owners. The Downtown Group in concert with the Yakima Central Business District Association has served as a valuable source of information, guidance, and inspiration in the development of this Downtown Plan. In all, over 175 individuals have participated in some 45 meetings to discuss the various aspects of the Downtown Plan. The community dedicated not only its time and interests to the development of this Plan but also contributed approxirnately $32,189 in support of the market and economic study. Yakima has recently adopted comprehensive water and sewer plans with planning horizons reaching to the year 2025. The Yakima Downtown Futures Plan, however, is only a ten year plan. While the Yakima downtown has been under the umbrella of the 1967 CBD Plan BD-Plnn CBD Plan-S.R. 2 8/14/89 2 and the 1976 CBD Improvement Plan, this 22+ year planning horizon of the past cannot be an appropriate time period for the future. While Yakima's economy grew only incrementally in the past 22 years, it is almost certain that the next ten years will bring major change. The continued growth and sprawl from the Puget Sound economy and the more frequent examples of major shopping center development interest in Yakima are only two of the signals that major change and investment in the Yakima CBD are forthcoming. PLANNING STUDIES Early discussions initiated in 1986 by the City of Yakima not only identified current issues facing the Central Business District, but also the need for baseline information and professional analysis in the areas of economics, transportation and parking, and urban design. These discussions led to the commissioning of four major studies by the City of Yakima and downtown business community, all of which were completed in 1988. They include the following: • Central Business District Market Share and Regional Economic Base Study, Bucher, Willis & Ratliff • Circulation. Parking and Public Transit Services, BD-PInn CBD PIanS.R. 3 8/14/89 The TRANSPO Group, Inc. 3 • The Yakima Downtown Plan Urban Design Element, Kasprisin Design Group • Downtown Housina Report - City of Yakima Office of Housing and Neighborhood Conservation. The above cited studies represent an investment of $85,000 by the City of Yakima, with $32,189 contributed directly by the merchants and property owners within the Central Business District. They provide not only the base line information necessary for development of the Downtown Plan, but also serve as the core of the Plan. Each study is incorporated herein by reference as part of the Downtown Plan. Each study includes analysis and recommendations for the future of the Central Business District. This summary report addresses the key issues and policy recommendations of each, but is not inclusive of all recommendations of each study. The reader is encouraged to read all four studies. In developing these studies, three alternative strategies for the future growth and development of downtown Yakima were considered: • Maintain Market Share - Maintenance of the status quo and prevention of further losses of market share. • The CBD - Focal Point - Strive for the next level of BD-Plnn CBD Plan-S.R. 4 8/4/89 business performance and create the image of downtown 4 as the focal point for activities throughout the Yakima Valley. • Major Business Expansion - Anticipate and prepare for potential major retail, office or hotel projects The City of Yakima and the Yakima CBD Association have decided to plan for Major Business Expansion. Doing so will require accepting and implementing the concepts and actions identified for all three possible futures. This approach will require significant public and private efforts to stem the loss of market share; to begin to create and enhance the downtown image; and, to prepare now for the future. CBD STUDY AREA The study area considered for detailed analysis for this Plan consists of 122 blocks bounded by Lincoln Avenue, Spruce Street, 10th Avenue, and the 1-82 Interstate freeway. (See Figure A) The study area boundary is consistent with the 1967 CBD study area and is sufficiently large to include all elements of the existing and future Central Business District. The CBD presently serves an urban area population of approximately 85,000 people, a market area population in excess of 190,000, and a 1985 market area sales potential of $597,800,000. BD-PInn CBD PIanS.R. 5 9/5/89 5 �• f/Aepf• •1. : i • . • m . : THE YAKIMA DOWNTOWN FUTURES PLAN: 1990 - 2000 r g ' Figure A CBD STUDY AREA MAP • •e ; � N c c e I I - 1 W. 'b• ot. w. ya&Ime ere... w. chestnut et. 1. r w w•Ilut •v•. ' 1 1- 1 :11_.l 1 .. I i i ! j 1 I ,'Il_ rel 116-_ - 1t : J [c • e 6 [ � r�)•��! •L—III • it �X�1�� 1���--�0O � � l I `) .)! IJ; I ` ., ° ;;C3' k eY ie e 71„CJIe"0, r-,,e[t�}t'ri asi Re„,1 i �•. ; •••. 17, ..� I I' iJ A r nnc, q-';°4zJ 11 4r7; 1 C? r—tIQto' o o n$ c t [ S f 11 I u ,nu o c 8°Q oRxg •t.Iiirj0 C51 ,11 c t ( - i41 CJS (rj drJpi 'nut 1=i1 •D fi pry} I /--% , ! l") v , I n 3 !(. I I "J n OdlfI ``••; J •.''.1,' I 11 I I If:',' C ' ] I I �r III_a !'S i •. ••• • e 7 .1(' i ' r; L-,-., , i i i _ , ...] L . 1 _ , L E r I, 1 --T l •. y•kim• Sr*. 1 _y'iJ [ .;_] Lam_ 1 _ 6 U 0�a, (j r1 11 11 El j ro. chestnut st. r 1 - [ I I •. walnut eve. (.� 8 L J 1 J rig Win° u 0 (sit [llrli r� uu �000'` L nn t0 1 rye ,6'0 oo �J 0 °poos ±^ �Onclf- °4-) f Ott, \� vQ n 8 WSJ ,7 �op •9 '' ° Cr °vo, , °j�11, ''I o O. 11 I Irl IL 1 l [� 'T �rf ��� '�tS�F'1 I 1881 igi mkt) J � LI lir-I neh� Imo. ' I • • 1•{• ,,f J. =r 1 r - Go / p , - '16' C .I - ;l ..� :L-- (1 : i Ir f• ❑ o �/ /�eb1 U b�( L? <Jr • �r I'. 1 1. i W l_.” r) rC71 «[o LI n G aJa; 1 9 . I_. N 11 f 1Ij° +Lry °nC •lit' u/11p1 LJ sir-- /�)",] ▪ L- :: •LI nLJ �LraJ ,e1 11, ,J V !ui L1nJ:t�t� nie L]!tj} 0 1 03 0 6 0 scale in feet MCP source kasprisin design group PLAN OBJECTIVES In order to promote Yakima's policy to maintain and enhance the position of the Central Business District and to plan for major business expansion, the Yakima Downtown Futures Plan is intended to serve the following urposes: 1. A statement of municipal policy and a source of information useful to citizens and businesses making private investment decisions. 2. A guide for the development of a downtown capital improvement program and establishment of priorities for municipal improvements. 3. A means of establishing policies and criteria for evaluation of new development in the Central Business District. BD-Plnn CBD PIanS.R. 6 8/14/89 Artist Concept from Urban Design Element: "Make Downtown Yakima "_THE" Place to Be, Not Just "A" Place to Be." 8 CHAPTER ONE ECONOMIC ANALYSIS Introduction While the Yakima central business district is the region's primary center for governmental, cultural, and recreational activities, retail services have traditionally been the cornerstone of economic strength. Accordingly, one of the basic objectives of the Yakima CBD Plan is to foster increased retail strength and diversity within the central business district. The Central Business District Market Share and Regional Economic Base Study (1987) prepared by Bucher, Willis & Ratliff provides the base line economic data and analysis necessary for determining the key economic issues and opportunities for the Yakima CBD. SECTION 1: THE YAKIMA CBD MARKET Market Area Based upon its size and diversity of shopping opportunities, the Yakima CBD is equivalent in economic character to a large regional shopping center. As such, its primary competition, at present, is from similar or larger competing centers in Seattle, Tacoma, BD-Plnn CBD -EA Chp. 1 1 8/14/89 9 A 49° 48° C 47° D 48. E 45' F 125° 124• 2 123' 3 122' 4 121° 5 120' 119' 7 119• 8 117• 9 Bellingham WHATCOM CANADA OKANOGAN FERRY STEVENS PEND OREILLE CLALLAM SNOHOMISH Everett JEFFERSON Edmonds CHELAN DOUGLAS LINCOLN SPOKANE GRAYS HARBOR GRANT KITTITAS ADAMS WHITMAN COWLITZ Longview Richland• Kennewick WALLA WALLA ASOTIN FRANKLIN GARFIELD COLUMBIA SKAMANIA KLICKITAT CLAn.. Vancouver SCALE 0 201 401 80I 80I 900 Kilometers I 0 210 40 tb1 • 100 Miles 1 , , U S Dep•^ment of Commerce OREGON Figure 1-A 124' N I I 2 123° 3 122° 4 121• Market Share Analysis Central Business District City of Yakima, Washington Q Placa of 100,000 or more inhabitants ® nice of 50,000 t0 100,000 Inhabitants • Place of 25.000 to 50,000 Inhabitants All potltical boundaries are as of January I, 1990 IDAHO SWIM) OF THE CENSUS '20 v 119' 7 118" e 117• 9 A 49° B 48' q' 4r E 45° F Portland, Spokane and the Tri -Cities. Yakima's market area presently approximates the boundary of Yakima County with some portion of both Kittitas and Klickitat counties. (See Figure 1-A). Market Share Evaluation of the CBD's retail strength involves comparison of retail sales trends as well as comparison of actual sales volume to estimated potential sales volume. Based upon data for 1984-1985, the Yakima CBD captures $125,945,000 (21.8%) of all retail sales within Yakima County and 38.9% of all retail sales within the City of Yakima. If goods such as building materials/hardware and auto dealers/gas stations, (categories not normally associated with regional shopping centers), were eliminated, the CBD market share is 49.7% of all retail sales within the City of Yakima. Based upon the market analysis, it appears that the CBD market share has declined slightly (3%) from the 1980-81 comparison period. This minor Toss in the CBD's market share appears to be the result of greater competition from community and neighborhood shopping centers within the CBD's market area. The retail environment in Yakima is unusually dispersed and each of the scattered retail centers represents an intervening shopping opportunity. While neighborhood centers anchored by a supermarket or variety store serve an important function, new or expanded BD-Plnn CBD -EA Chp. 1 2 8/14/89 11 centers including Targe discount stores would limit the potential of the central business district. Economic Growth Potential A significant source of retail sales growth can be achieved through reduction in retail sales leakage and market area population growth. In total, these sources are estimated to provide a $69 million to $95 million growth potential by the year 1996. Retail sales leakage represents sales which theoretically should be captured within the market area but for one reason or another are not. A key factor for reducing leakage will come from new major business development or expansion within Downtown Yakima and assumes no similar commercial development outside the CBD. Although such leakage presently represents only 6% of the potential market area sales, Yakima's economic growth potential through stopping sales lost to areas outside the Yakima area (leakage) is over $33 million. (See Ch. 1, CBD Economic Study for a comprehensive discussion and analysis). Future market area population growth is also an important source of retail growth. A low (0.6%) growth rate and a high (1.0%) growth rate were examined in projecting population growth. The relatively conservative 0.6% growth rate, significantly below the actual 1970-1980 growth rate, would yield a $36 million increase in retail sales for the City by 1996. The high growth rate (1.0%) could BD-Plnn CBD -EA Chp. 1 3 8/14/89 12 yield an estimated $62 million City increase in retail sales. If economic and population growth spills over into Eastern Washington from Puget Sound, the high growth rate of 1.0% may turn out to be quite conservative. Increasing development costs and restrictions in the Puget Sound area are contributing to this spill-over effect. Perceptions of Downtown One method of improving CBD sales is to enhance the Downtown shopping experience. Downtown should be "the" place to shop, not "a" place to shop. Three surveys were used in evaluating the performance of the CBD: a shoppers survey, a merchants survey, and a parking survey. These surveys were designed to explore perceptions of the shopping environment, merchandising, and transportation and parking. In general, the downtown fared quite well and the vast majority of the respondents shopped in the downtown on a regular basis. Interestingly, shoppers in the Downtown area have an even higher opinion of Downtown Yakima than either the merchants or Downtown employees. While the shoppers determine the success of the CBD by "voting with their dollars", the merchants likewise play a critical role with remodeling, expansion, merchandizing and other re -investment decisions. It is, therefore, important that the merchants' perception be improved. Also, since Downtown employees are shoppers, marketing to attract Downtown workers to shop Downtown and the development of programs designed to build BD-Pinn CBD -EA Chp. 1 4 8/14/89 13 pride in Downtown may yield substantial marketing returns. This could be in the form of higher volumes of sales to CBD employees and higher volumes of sales by CBD employees because of improved attitudes towards working and shopping Downtown. While shoppers perceive the Downtown's shopping environment as above average, some criteria consistently rated sufficiently low to warrant attention and improvement: Parking is consistently perceived to be a problem by all three groups entering and utilizing downtown Yakima. Given the number of vacant parking spaces in the Yakima Mall Parking Garage, this problem deserves serious attention to resolve what apparently is a perceptional and/or cost problem. Traffic is also perceived as somewhat problematic. While rating above average or between fair and good, minor improvements in this category might reap significant gains. BD-Plnn CBD -EA Chp. I 5 8/14/89 14 SECTION 2: KEY ECONOMIC ISSUES Review of the Planning Studies and comment by the Downtown Group has led to the identification of several key economic issues. These include: Market Competition - While the Yakima CBD is the largest single shopping district between Seattle and Spokane, the City of Yakima's share within the Yakima market area (and probably the CBD's share, as well) is declining. The increasing prominence of discount and strip commercial retailing erodes downtown sales. Of even greater concern is the possibility of a regional mall development which could jeopardize retention of the four full -line department stores which are the existing retail anchors of the downtown. The City of Yakima and Yakima County should jointly review, and amend as necessary, the Urban Area Zoning Ordinance to limit adverse impacts of new retailing outside the CBD. This review should also focus on the possibility of regional mall development which would jeopardize retention of full -line department stores in the downtown Such action would be consistent with the adopted policy of the Yakima Urban Area Plan. BD-PInn CBD -EA Chp. 1 6 8/14/89 15 CHAPTER TWO TRANSPORTATION INTRODUCTION Transportation innprovements and services are the single most significant public infrastructure contribution serving the Central Business District. Downtown streets, parking facilities, and the transit system, currently serve 4,762,500 square feet of building area within the Central Business District. During the October 1986 survey period, a total of 172,000 vehicles per day were counted as entering, exiting, or passing through Yakima's downtown. These vehicles utilized a total of 14,000 parking spaces, 5,000 public and 9,000 private. The future of Yakima's Central Business District will be contingent upon an effective and efficient transportation system. Technical analysis of the CBD transportation systems is provided through a consultant's report Circulation, Parking and Public Transit Services (1988) prepared by the TRANSPO Group, Inc. The consultant's report was based upon a comprehensive study and analysis of the CBD transportation system conducted by the consultant, and includes their recommendations. BDPLNN CBD Plan Chpt. 2 1 8/14/89 16 SECTION ONE: TRAFFIC Public Street System - Yakima Avenue and the I-82/Yakima Avenue interchange serve as the primary arterial entrance to and through the CBD. The recent efforts to enhance Yakima Avenue's function as an arterial street should be continued and action taken to return East Yakima Avenue to an Urban Arterial classification. Existing angle parking along Yakima Avenue conflicts with the arterial function, and should be eliminated as a part of future street improvement projects. To minimize through traffic penetration of the Central Business District, Walnut Street and the Lincoln Avenue/"B" Street one-way couplet are designated as the east -west through traffic routes running immediately north and south of the Central Business District. Crossover connections are provided to Yakima Avenue at each end of the CBD from the Lincoln/"B" couplet to Yakima Avenue on the east end and Summitview Avenue on the west end. First Street is the major north -south arterial street located east of the Washington Central Railroad line and also provides access to the Central Business District from 1-82. Fruitvale Boulevard and North 5th Avenue are the major arterials serving the CBD from the northwest sector of Yakima while Tieton Drive and South Third Avenue provide access from the southwest sector of the city. BDPJ CBD Plan Chpt. 2 2 8/14/89 17 Creation of a more direct arterial street linkage between the downtown and the SunDome/Fairgrounds complex is vital to hotel/motel and tourism growth in the CBD. Following completion of the I-82/Yakima Avenue Interchange Study, a significant effort must be made to secure funding for the interchange improvement and recommended CBD/SunDome transportation linkage. Since completion of a new linkage may be several years away, interim improvements (i.e., directional signs and lighting) should be made to the So. 6th St. and Pacific Avenue linkage. TRAFFIC FLOW CHARACTERISTICS Traffic flows on the CBD street system are typical of a predominantly retail business district. Traffic volumes continuously increase during morning hours to a high point around noon. Inbound and outbound traffic combined continue at this peak level until 5:00 p.m., after which time volumes rapidly decrease. Figure 2-A illustrates hourly traffic variation for the sum of all traffic at Central Business District entry points. Traffic counts were collected and analyzed at key Central Business District intersections during the morning commuter time. Traffic flow quality within the Yakima Central Business District was calculated at a level of service B at most locations, and level of service C at two locations along Yakima Avenue. Service levels are defined in Figure 2-B. This level of service is considered acceptable in cities of Yakima's size. Figure 2-C provides traffic volume counts BDPI N CBD Plan Chpt. 2 3 8/14/89 18 Figure 2-A VEHICLE TRIPS CROSSING CBD CORDON BY HOUR OF DAY 9000 8000 7000 ` . a 6000 6000 0 4000 3000 2000 1000 0 d. E -41 caao. 0.6104,0n 000 .c .g. OF DAY 19 2 H .4 —4-- INBOUND -a- OUTBOUND we as well as the level of service calculations at each of the key arterial street intersections. Figure 2-B Level of Service Definitions Level of ag_rvice .0.1. of Dapa y Description A Less than 60% Free flow, no disruptions other than normal signal delays. B 60% to 70% Some impedance by other traffic; may occasionally await a second signal cycle. C 70% to 80% Generally accepted as tolerable limit in small cities. D 80% to 90% Significant delay; tolerable limit in larger urban areas. C 90% to 100% Considerable delay; unacceptable traffic operation conditions. F Over 100% "Jammed" conditions; extreme delay In 1988, concurrent with the development of this Plan, a decision was made to change the emphasis of Yakima Avenue from that of a pedestrian -oriented street to its prior function as an east -west arterial street through the Central Business District. Accordingly, BDPWN CBD Plan Chpt. 2 4 8/14/89 20 <North LEDGEND: 16,300 —1986 24-HOUR TRAFFIC COUNT pg —PM PEAK HOUR C LEVEL OF SERVICE 04.L.ILJELE:310 cp - HEEL ocQc 7r YN nonn .F - e r� o �C°'`� RC1 � • ,_,,.� ��--- YAKIMA CENTRAL BUSINESS DISTRICT Figure 2-C TRAFFIC VOLUMES AND LEVELS OF SERVICE YAKIMA CBD TRANSPO Group 91 mid -block crosswalks in the core area were removed and initial efforts were made to synchronize the signal system. While much of the public's perception of traffic congestion in the downtown may be caused by uncoordinated signal progression along Yakima Avenue, future signal and street improvements will substantially improve this situation. Yakima Avenue's current design can allow it to carry from 25 to 40% more traffic before street and intersection capacity becomes a future cause of congestion. One existing area of potential congestion is the Yakima Avenue intersection at Second Street The Yakima Avenue and Second Street intersection does not provide a center left turn lane. Space could be made available for such a turn lane through conversion of existing angle parking to parallel parking or left turns could be restricted. While a decision was made to change the function of Yakima Avenue, angle parking consistent with its previous pedestrian emphasis still remains and reduces the capacity of the street to serve the recommended arterial function. While some business owners are reluctant to lose their current angle parking, it is clear that if the traffic flow capacity of the street is to be realized, angle parking should be removed. If no significant changes or improvements of the CBD Street system are made it can still well serve traffic needs over the next 10 to 15 years. While the existing street system has adequate reserve capacity to meet a low growth scenario, Yakima's desire to be prepared for and accommodate major new growth within the Central Business District will require a number of street changes and BOPLNJ CBD Plan Chpt. 2 5 8/14/89 22 improvements. Street improvements key to this growth scenario are as follows: 1. Improve Yakima Avenue for traffic operations and capacity, and to provide better signal progression and through traffic. 2. Revise and strengthen the Lincoln and "B" couplet system as the CBD traffic by-pass. 3. Pursue improvement of the Yakima Avenue 1-82 interchange to provide a more effective entry to the Central Business District as well as a connection between the CBD hotel and motel convention facilities and the SunDome, Central Washington State Fairgrounds. 4. Develop a circulation access plan for the East CBD development opportunity area in the northwest quadrant of the 1-82 Yakima Avenue interchange. 5. Revise public transit operations to minimize impacts on CBD streets and businesses and to enhance transit use and convenience. This includes establishing an off- street transit transfer facility and shuttle service. 6. Improve informational signing and access to public parking facilities and the Yakima Mall Parking Garage. BDPLNJ CBD Plan Chpt. 2 6 8/14/89 23 .0 agricultural festival grounds (winery/mit tasti . —exhibits) fe tiv 41 ., W,ri!!L1°41011.0 - i •�sl.; ,;V••'a r• 41/7iji3* 4 1 C-Cabrr Artists concept from Urban Design Element of Fair Avenue Underpass at I-82/Yakima Avenue Interchange. ARTERIAL STREET CLASSIFICATION PLAN A proposed arterial street plan (See Figure 2-D) for the Central Business District incorporates the recommendations of the Transportation Study. It also reflects a new recommended arterial street route to the SunDome/Fairgrounds via Fair Avenue connecting to South 10th Street. The feasibility of this proposed linkage is provisional pending completion of the Yakima Avenue/I-82 Interchange Study currently underway. The Plan objective is to promote the use of the Lincoln Avenue/"B" Street couplet and Walnut Street for the east/west non -CBD (thru) traffic. First Street will cater to north/south thru traffic east of the railroad line and 3rd and 5th Avenues will carry traffic through the west CBD. Yakima Avenue will be the an east/west arterial street through the Central Business District, however, the slower speeds (25 miles per hour, average) pedestrian activity and frequency of signal lights, combined with effective by-pass/CBD Shopping District signing, will encourage non -CBD traffic to utilize the by-pass routes. The local and collector streets would have a primary function to serve local business and parking access. All parking facility access drives should focus on these streets and direct access to the major and minor arterials should be minimized. BDPWN CBD Plan Chpt. 2 7 8/14/89 25 MIT r �'<u e I`s 1. 6tA N[RRr }fAv[ CITY OF YAK I MA, WA \\ \ f l` \\ \\\'✓ - \ i,•, tea, \ 1-'4A- ' ' \ i • __\ '----- .0 i • 0. s'. TAITR�--OTFtiT— • liNW 1' 4ylS i \/,, * \ e--7 t\:_ii ., \t \rn\ \ i\i\ \ \\r1 4III \ uu III DOWNTOWN PLAN CITY Co— YAKIMA, DEPARTMENT OF COMM :ITV AND ECONOMIC DEVELOPMENT\ 'QQQ ,[[CN NI[M Let r AC. [ EXISTING ARTERIAL STREET PLAN (MUT DIP MUT I Unincorporated `_ ... L.... ADAMS ST. Arterial Class: Principal Arterial X1111111111111111' Minor Arterial ������� Collector PACIFIC Av[au[ Sundome and Central Washington State mds 1[[T WILLOW i I•T. \ Figure 2-D \ \\ ,.a` E'1�\� \`T1 Hiner II tw[. J $ IPROPOSED ARTERIAL CLASSIFICATION PLAN Arterial Class: Principal Arterial 1111111111111111111 Minor Arterial av'���4°"'"' Collector Street Unincorporated DOWNTOWN PLAN CITY OF YAKIMA, DEPARTMENT OF COMMUNITY AND ECONOMIC DEVELOPMENT\ �4R4 lmrnfl Sundome and Central Washington State Fairgrounds While the existing local street grid is important and should be maintained, it is recognized that the closure of some streets will become necessary for the creation of super -blocks to meet major new development needs. Each street closure should be approached from the standpoint of assessing the major economic benefits to be achieved and should be based upon a detailed study. SECTION TWO: PARKING The Yakima Central Business District Study Area currently has about 14,000 parking spaces, excluding off-street residential parking. About 5,000 of these parking spaces are public parking provided on public streets within the Central Business District, and in six off- street public parking lots in the CBD Core Area (450 spaces). The balance of 9,000 are provided on private off-street parking Tots throughout the Central Business District. A general breakdown of this parking supply is shown by Figure 2-E. West CBD (west of BNRR Figure 2-E Public Private Total 2,000 3,900 5,900 CBD Core Area (Between BNRR and 6th Street 1,650 4,000 5,650 East CBD (East of 6th) 1 .350 1.100* 2.450 Totals 5,000 9,000 14,000 * Includes about 400 parking spaces available to the Yakima Convention Center. BDPLJ4sI CBD Plan Chpt. 2 8 8/16/89 28 Public parking utilization within the CBD was monitored on four days during October and November of 1986. These included an average weekday shopping day, the Saturday, before Thanksgiving; and the day after Thanksgiving. Parking utilization follows a curve similar to that of total vehicle trips within the Central Business District. Peak parking accumulation in the Central Business District occurs between 11:00 A.M. and 3:00 P.M. reflecting the dominant retailing characteristics of the Central Business District. At the mid-day peak, it is estimated that about 6,000 are simultaneously parked. Therefore, considering a total supply of about 14,000 parking spaces, less than half of the total available parking supply is utilized at peak time on the average weekday. For this reason, current overall Central Business District public parking is more than adequate to meet existing needs. However, parking adequacy varies by location within the Central Business District. In the east CBD core area capacity or near capacity utilization of public parking occurs on a regular basis whereas the west CBD core area experiences this in only a few scattered locations. Due to the near capacity utilization of public parking within the east CBD core area in the vicinity of the Yakima Mall, additional emphasis and analysis was placed on this 12 -block sub -area by the parking consultant. From the additional information and analysis focused on the east CBD Core Sub -Area, the following observations can be made: 1. Total available parking supply is about double the parking utilization on a typical weekday. BDPI.NN CBD Plan Chpt. 2 9 8/15/89 29 2. Public parking in the 12 -block core is 68% utilized on a typical weekday, as compared to only a 45% utilization of private parking supply. 3. Public parking utilization on blocks east/west north and/or surrounding the Yakima Mall reach levels close to or exceeding 85% utilization -- the threshold of perceived parking shortage. At the same time, more than half of available private parking on these blocks were not utilized. In light of these findings, an estimate of potential "design level" for CBD Core Sub -Area parking demand was prepared. This estimate assumes a 95% occupancy of all existing core area buildings and an average December weekday retail parking demand. Findings relevant to this design level parking demand estimate are as follows: 1. Even if all existing CBD core sub -area buildings average BDPLtNN CBD Plan Chpt. 2 10 8/15/89 95% occupancy or better on a pre -Christmas weekday, only 78% of the parking supply within one block of the core area would be utilized, however, parking demand in the 12 -block core would exceed its total supply. 30 2. On weekdays, employee parking demand would be nearly equal to customer and visitor parking space needs. 3. Though most of the parking demand within areas adjacent to the core sub -area is generated by the 12 -block core area, parking utilization is about equal in both the core and core fringe areas. The findings of the parking analysis indicates that the downtown has sufficient parking at this time, however, the results of the shopper and parking surveys reflect the perception of a parking problem. This perception appears to reflect several factors, including: parking facility location, cost, accessibility and convenience; a situation of ineffectively identifying, marketing and managing available parking; and the public preference for "free" parking with direct street level access to stores. The CBD Association has recommended accepting the consultant's suggestion that a parking management association be formed. In addition, improved signing directing traffic to parking in the public parking facilities, as well as the Yakima Mall, should be implemented. A significant amount of customer parking close to retail facilities could be made available if long-term parking facilities are established for employees and programs implemented to encourage using such facilities. This could include transit shuttle service, financial incentives, and special security measures. BDPLNN CBD Plan Chpt. 2 11 8/15/89 31 While parking is currently adequate, additional parking will be required to accommodate any major new development. This could be accomplished under the direction of a parking management authority, by project developers or by the construction of City - owned public parking facilities, SECTION THREE: TRANSIT The City of Yakima's public transit system serves an important role in providing access to the Central Business District for City residents as well as visitors and tourists. The continued and enhanced operation of a public transit system provides important benefits to the overall economic viability of the Central Business District. CURRENT TRANSIT SERVICE The City of Yakima currently provides 10 transit routes serving the greater Yakima area. All routes except the west side loop focus upon service to the Central Business District with a specific emphasis on the CBD Core Area. Six of these routes have terminal destinations within the CBD Core. While these routes are dispersed amongst a number of core area streets, they all ultimately converge at an on -street transit transfer location along Yakima Avenue adjacent to the Yakima Mall and Chinook Tower. BDPWJ CBD Plan Chpt. 2 12 8/16/89 32 TRANSIT SERVICE GOALS The Central Business District merchants and landowners have expressed a strong desire for improving the City transit system and enhancing its benefits to the Central Business District. In this regard, the following goals for CBD public transit service have emerged. 1. Maintain public transit service focus on the Yakima Central Business District and its core to provide convenient low cost access mobility for Yakima residents as CBD employees and business customers. 2. Minimize the impact of transit vehicles on CBD street congestion and on air and noise quality. 3. Minimize store front view blockage by transit vehicles at bus stops and minimize curb space dedicated to transit vehicles only. 4. Provide high frequency transit shuttle service along Yakima Avenue to serve all economic attractions in the east and west CBD area, including the hotel and convention facilities at the east end of the Central Business District. BDPWN CBD Plan Chpt. 2 13 8/15/89 33 5. Provide scheduled or shuttled transit service between the hotel and convention facilities at the east end of the CBD and the Yakima Fairgrounds and Yakima Air Terminal. 6. Seek a new off-street transit center location for transit coach layover convenient inter -route transfers and connections to shuttle services. 7. Investigate opportunities for shuttle service (possibly adjacent to transit transfer facility) between long term (all day) parking facilities and Downtown employment centers (Yakima Mali, City Hall/County Courthouse, etc.) for use by CBD employees. BDPLN CBD Plan Chpt. 2 14 8/15/89 34 CHAPTER THREE DOWNTOWN HOUSING INTRODUCTION The expansion and strengthening of the business community within Downtown Yakima will create land use changes in some areas. As plans develop for these expansion activities, planning for existing residential areas must also occur. Neighborhood areas which may be impacted must be identified at an early stage so as to minimize negative impacts upon residents. Recognizing the importance of the interrelationships of residential uses to the future of the CBD, The Downtown Housing Plan (May 1988) was prepared by the City of Yakima, Office of Housing and Neighborhood Conservation. The Downtown Housing Plan serves four principle purposes: 1. Identification of existing downtown housing resources and current issues influencing neighborhood conditions. 2. Proposes actions which may be taken to reduce negative impacts of land use transitions upon neighborhoods. CBD Plan Chpt.3 DH 1 8/15/89 35 3. Outlines implementation strategies which promote neighborhood preservation, where appropriate. 4. Presents beneficial results of implementation strategies which should be monitored for effectiveness or other needs. The Downtown Housing Plan recognizes some land use transitions are necessary to accommodate economic development. This Housing Plan should be used as a reference in assessing the relative impact of development activities within Downtown Yakiima upon the existing housing resources. This plan assists in the identification of residential areas which will be considered in any land use changes. EXISTING CONDITIONS Within the CBD study area there is a complete array of housing types and densities ranging from low density single family residential neighborhoods through high density apartment structures. Within this range of housing types and densities is located 1,161 total housing units which represents 5% of Yakima's housing stock. There is a need for housing rehabilitation. At this time 80% of the housing stock is in sound condition and an additional 14% is in need of minor repairs. The remaining 3% of the housing stock is in need of major rehabilitation or is in a dilapidated condition. (See Figure 3-A) CBD Plan Chpt.3 DH 2 8/16/89 36 Figure 3-A DOWNTOWN STUDY AREA HOUSING STOCK BY STRUCTURAL CONDITION Sound Minor Major Dilapi- Unknow Total Unit Type ,condition Rehab Rehab utas! Condition ikda Single Family Detached 143 35 17 2 11 208 Duplex Units 122 74 7 1 2 206 Multi -Family (3 or more units) 431 26 8 1 466 Group Quarters 60 10 1 1 72 Other (not specified) 174 13 2 1 19 209 Total 930 158 35 5 33 1161 80% 14% 3% -% 3% EXISTING RESIDENTIAL LAND USES The Yakima Central Business District's housing stock is distributed among five distinctive land use patterns within the downtown area. (See Figure 3-B). Each type of these residential land use patterns has a unique set of characteristics, difficulties and development opportunities. The various existing residential settings are summarized below. CBD Ran Chpt.3 DH 3 8/16/89 37 DOWNTOWN YAKIMA HOUSING EXISTING RESIDENT -1k 'JSES Figure 3-B LOW DENSITY NEIGHBORHOODS 1. NORTHEAST 8TH ST 2. SOUTHEAST 3. EAST PITCHER ST 4. NORTHWEST Other low density structures outside these neighborhood areas are not mapped. ON MODERATE DENSITY (3-8 UNITS) HIGH DENSITY (9-19 UNITS) VERY HIGH DENSITY LOW DENSITY RESIDENTIAL NEIGHBORHOODS Four distinct low density residential neighborhoods exist within the downtown study area. These neighborhoods are located along the borders of the study area, representing an estimated 396 single- family and duplex housing units, and constitute approximately 30% of the downtown area's housing stock. While these neighborhoods are generally sound, changes in land use of adjoining areas could affect neighborhood character. One existing neighborhood identified in the Housing Plan (East Pitcher Street) appears subject to land use transition to commercial use, due to poor structural condition and location (adjacent to East Yakima Avenue near 1-82 interchange). Other neighborhood areas may also be subject to development pressures, however, low density neighborhoods can be retained in many areas with appropriate planning measures. LOW DENSITY SCATTERED SITES This category of residential use includes isolated or small clusters of single-family and duplex structures, surrounded by commercial or industrial land uses. These isolated residential units are common in older residential neighborhoods which have converted to commercial use. Much of the neighborhood quality and character has already been lost. For the most part, these structures will be redeveloped into commercial uses. In some situations, the structures may merit retention, based on historical or architectural character. CBD Plan Chpt.3 DH 4 8/16/89 39 MODERATE DENSITY RESIDENTIAL AREAS Approximately 54 residential structures containing 3-8 units are located throughout downtown Yakima. These units are found in isolated settings surrounded by commercial uses as well as in clusters of moderate density residential structures. Isolated moderate density structures may undergo transition to commercial use as development occurs. Clustered moderate density residential uses, however, still retain some neighborhood character in identity and may continue with proper maintenance and buffering from adjacent commercial uses. HIGH DENSITY RESIDENTIAL STRUCTURES Nearly 200 housing units in the downtown study area are located in structures which contain 9-19 units and over 300 housing units are located in structures of 20 or more units. These existing high density structures are primarily located along arterial roadways and the fringes of the commercial areas. Most of the structures are new buildings constructed since 1970 and many are profitable commercially operated facilities. High density residential structures, like commercial development, adversely effect adjoining low density residential neighborhoods. CBD Plan Chpt.3 DH 5 8/15/89 40 HIGH DENSITY MIXED USE These residential uses often contain 9 or more housing units located on the upper floors of commercial structures built prior to 1940. Mixed use structures are primarily located within the commercial core on high traffic streets. While the number of mixed use residential units in downtown Yakima is not known at least 30 structures were identified which contained some residential and commercial mixed uses. Due to age, many of the structures have building and safety code deficiencies and suffer from deferred maintenance. RECOMMENDED ACTIONS The following actions are recommended as development guides to reduce development impacts upon the CBD housing resource: • Continue capital improvement and public service investments in downtown neighborhoods. • Preserve and promote an adequate supply of affordable housing as well as a mixture of housing types. • Encourage community efforts to reduce area crime problems. CBD Plan Chpt.3 DH 6 8/15/89 41 • Develop a preservation policy for historically significant structures. • Maintain existing traffic patterns where feasible. • Examine residential parking requirements in downtown. • Review site and design control measures. CBD Plan Chpl. 3 DH 7 8/15/89 42 CHAPTER FOUR URBAN DESIGN INTRODUCTION Study and analysis of Yakima CBD Urban Design needs and opportunities was facilitated by the Kasprisin Design Group. The results of their work and their recommendations are contained in theft report, The Yakima Downtown Futures Plan -- Urban Design Element (Summer 1989). Urban design is the process of providing the setting for urban activities and services in a manner which is beneficial to the residents of the community. Urban design gives physical form to the economic, social, functional and political actions of the community. Yakima's community image, within the region as well as within the State, is largely dependent upon the success of our initiatives to establish a unique identity. An identity that portrays us not only as a center of a famous agricultural product region, but also as the regional cultural center for Central Washington and the major businesses and services center for the Central Washington/I-82 corridor. In large part, our identity is a reflection of the buildings we have built, our monuments, and our streetscape with all of its activities. In this regard, Yakima has already created its image. The goal is to enhance and improve upon our image. BD/PLNN Chpt. 4/UD1 8/15/89 43 SECTION 1: EXISTING FEATURES AND IMAGES Yakima's downtown core is characterized by brick and stone masonry buildings which provide a formal scale highlighted by special masonry detailing and building elevation proportions. Architecturally and historically significant buildings exist on both the east and west sides of downtown and form the basis of our architectural image. These buildings are both dispersed throughout the downtown as well as grouped in recognizable districts. These districts range in character from Naches Avenue, our formal landscaped parkway with its stately residences and public buildings, to East and West Yakima Avenues with their prominent and historically significant buildings, including the Larson Building, the Great Western Building , the First Presbyterian Church, and others. Together these districts form a quiltwork pattern of special events, offering valley residents and visitors multiple destinations and attractions. Each district, however, is more than a collection of building and streets -- they are places in which we inhabit, circulate and interact. They require a holistic or comprehensive design approach. Based upon field observations, interviews and an analysis of the physical and activity patterns within the downtown area, Yakima's BD/PLNN Chpt. 4/UD2 8/15/89 44 urban design consultant, The Kasprisin Design Group, has identified 14 separate places: (See Figure 4-A) 1. East Entry Parkway along Yakima Avenue 2. Agri -cultural Resource Park 3. The Convention Center Complex 4. Naches Boulevard 5. The Civic Center 6. The Mall Super Block/The Mercy Block 7. The Yakima Avenue corridor 8. Third Street Promenade and Commons 9. Front Street 10. The Warehouse Corridor 11. 5th Avenue Corridor 12. 7th Avenue Commons 13. Summitview Center 14. St. Elizabeth Place/Davis High School & surrounding area Each place constitutes a separate and distinct activity area within the downtown and each represents destination places or gateways to other places. Many of these qualify as event places where special activities and attractions occur. The Urban Design report provides recommendations for development of each of these 14 places. BD/PLNN Chpt. 4/UO3 8/15/89 45 0 0 0 CV 0 0) 0) b Xi to a) z 1 w o 0 1• 0 b E a. -s .-- rd a rd co a) 0 to X4 0 to Q al 0 Figure 4-A 46 SECTION 2: DESIGN STATEMENT AND GUIDELINES DESIGN STATEMENT Downtown Yakima development should seek to adhere to an overall, general design statement as well as specific sub -area design standards. The general design statement for Downtown Yakima includes the following elements: 1 Downtown provides a unique architectural statement, differing from the peripheral retail users through its masonry strength and classic styles in the commercial retail centers, and its historic wood frame residential structures adjacent to the retail core. 2. Downtown is a series of high quality architectural buildings and artifacts including historic buildings or districts which can be preserved and contemporary new buildings designed in a compatible manner providing an overall unified decorative motif. 3. Downtown is a safe, comfortable, clean and convenient place to go and be in. BD/PLNN Chpt. 4/UD4 8/15/89 47 URBAN DESIGN GUIDELINES GuideliDe 1: Maintain and improve upon the street tree and landscaping planting program throughout the Downtown. i line 2,: Establish entry landscaping or parks at each major City CBD entrance (North 1st Street, Yakima Avenue and Summitview/Pierce St.). Guideline 3: Prepare a street signage design program for downtown streets, parking facilities and major destination points (i.e. Yakima Mall, Historic District, Capitol Theatre). Guideline 4: Buildings with historic and/or architecturally significant value, on a national, state, and local level, should be preserved and protected. In addition, their surrounding areas or physical settings need to be protected and improved so that these significant buildings or artifacts are safeguarded. These would include the Larson Building, the Chinook Tower, the Great -Western Building, the Capitol Theatre, the William 0. Douglas Federal Building, the Railroad Depot, St. Elizabeth Hospital, and the many churches and schools. Guideline 5: The architectural design of new structures may be contemporary but should be sympathetic to and compatible with significant existing architecture. BD/PLNN Chpt. 4/UD5 8/9/89 48 The downtown community should have a quality design that is in keeping with an overall design image or statement for the downtown area, a statement which is specific to Yakima and is not one which is generic to a particular building type or activity. Design guidelines should be developed to guide the design of new architecture within the Downtown and within the special districts. Guideline 6: Encourage the development of a series of "events -places" within the pedestrian levels throughout the downtown area. "Events -places" are defined as areas where a number of pedestrian activities come together and mix or combine. In an "events -place" there is an intensity and diversity of people activity, one that can be secure due partly to its diversity and intensity. These series of places should be highlighted throughout the Downtown. Guideline 7: Increase the comfort and convenience of the pedestrian with design elements which shelter, protect and inform or orient the pedestrian. Examples include the provision of awnings and other overhead projections to protect the pedestrian from sun, rain, snow, etc.; the addition of enclosed pedestrian public or semi-public spaces which are either heated or cooled depending on the season and are secured. BD/PLNN Chpl 4/UD6 8/9/89 49 Guideline 8: Establish a CBD to Fairgrounds/SunDome arterial connection through redevelopment of the Yakima Avenue/I-82 interchange and arterial improvements including signing, lighting and landscaping. BD/PLNN Chpt. 4/UD7 8/9/89 50 CHAPTER FIVE LAND USE INTRODUCTION One of the strengths of downtown Yakima as an urban center is the diversity of land uses. The combination of public institutions, offices, retail shops, warehouses, entertainment, restaurants and other uses creates a vitality and intensity that is not duplicated elsewhere in and vitality downtown's diversity are sub -districts difficult for the County. While this diversity is a source of strength for the downtown, it also presents one of the challenges. Many of the opportunities related to lessened by the lack of a clearly defined image for the in the Central Business District. This makes it more shoppers to keep an accurate mental map of the businesses and other uses in the CBD and adversely effects retail sales. While the existing land use mix in the downtown is adequate, there is need for improvement. Land use planning is key to developing a more defined land use pattern and market orientation for the downtown. The more precisely defined land use pattern is the basis for providing physical improvements in a logical manner. Fortunately, there are relatively few physical barriers to be overcome and few major uses which are totally out of place. BD-PLNN CBD Plan -Ch. 5 1 8/15/89 51 SECTION 1: DOWNTOWN SUB -DISTRICTS The downtown contains a number of identifiable sub -districts. Actions to enhance the identity, function and character of each districtthat were recommended by the Study and by the Yakima CBD Association are summarized as follows: EASTSIDE CORE AREA - This sub -district is located between First Street and Naches Avenue, and between Chestnut and East "A" Street. This district contains the majority of the comparative retailing typically associated with a shopping center and is an obvious key to maintaining the downtown's status as the region's primary retail center. This area is designed to accommodate intense retail development, especially on the street level. Office buildings and multi-level parking facilities should have street level retail or walk-in banking services. Drive-in banking services should not be encouraged. While land use policies directed to limiting shopping centers outside the CBD may restrict threats to the CBD, the CBD itself must provide opportunities within the same economic parameters that a regional shopping center would expect. Major land assemblage will be required if location and expansion opportunities are to be provided. In this regard, the most significant limitation in this district is imposed by the existing arrangement of uses and structures. Anticipated redevelopment will result in the removal of some existing buildings; the vacation of public streets to BD-PLNN CBD Plan -Ch. 5 2 8/15/89 52 create super blocks; the construction of skywalks for pedestrian linkage between structures; and the development of additional parking, possibly through the development of multi-level parking, structures. Policies are needed to accommodate as well as guide both private and municipal decision making on these important changes. EAST YAKIMA AVENUE - This sub -district is located east of Naches Avenue on either side of Yakima Avenue and serves as the primary entrance into the downtown. The tourism and convention facilities orientation is entirely appropriate, however, attention should be given to examining the demand for additional motel and convention space and creating an arterial street linkage to the SunDome. It may be desirable to develop additional convention space and/or tourist services (motels or restaurants). The expansion alternatives for the Yakima Center and other tourist facilities should be encouraged, however, the impact upon the street system, residential and historic structures and market demand will need to be evaluated in determining the optimal expansion alternative. EAST CHESTNUT/SPRUCE - This sub -district is located east of South First Street between Chestnut and Spruce. This sub -district does not have a dominant or easily definable character. The current theme is one of personal and business services based on uses such as office supplies, health spas, photographers and the U. S. Post Office. Future uses appropriate to BD-PLNN CBD Plan -Ch. 5 3 8/15/89 53 this district would be sales of office and computer equipment and service uses such as accountants and temporary employment agencies. NORTH/SOUTH FIRST STREET - This sub -district is located along both sides of First Street and is an area in transition from historic highway service uses. So far, no new market niche has been developed to take the place of the highway service orientation. This lack of direction coupled with the arterial emphasis of First Street adds to the perceptual barriers separating east side and west side merchants. FRONT STREET DISTRICT - Centered on North Front Street, this sub- district includes the "Old North Yakima Historic District", which is listed on the National Register of Historic Places. Emphasis on boutiques, restaurants and specialty shops fits well with the Historic District and businesses such as Grant's Brewery. The recent development of Track 29 and the current renovation of the railroad depot by Washington Central Railroad will substantially strengthen this district. While the distinctive character and economic health of the sub -district has improved substantially, care must be taken to preserve the integrity of the Historic District. Development of formal design guidelines for the Historic District would be a major step towards promoting the future of the entire Front Street District. The provision of additional off street parking to serve the growing retail needs of this district is also important. BD-PLNN CBD Plan -Ch. 5 4 8/15/89 54 GOVERNMENT/COMMUNITY SERVICES - This sub -district is located east of North First Street between East "A" Street and Lincoln Avenue and has a distinctly public and institutional character. The area includes Yakima City Hall, Yakima County Courthouse, the County Jail, Regional Library and several churches. The area also contains a number of professional service uses compatible with and appropriate to the district. Replacement and/or expansion of either city or county offices should be cooperatively planned so that the civic center emphasis is maintained and enhanced. WHOLESALING/WAREHOUSING SUB -DISTRICT - Located on West Yakima Avenue between the railroad tracks and Third Avenue, this sub- district was dominated by warehousing and transportation uses. While some of these historic uses are still operating, attempts are being made to transition the older warehouse buildings to new uses. Although the transition may be difficult since the existing warehouse buildings may not easily lend themselves to redevelopment and reuse, recent innovative adaptations have demonstrated that this area can be successfully developed and serve as a positive link in connecting east side and west side merchants. Consideration should be given to amending the zoning of the area to facilitate future transition and strengthening of the sub -district, while protecting traditional uses. WEST SIDE CORE AREA - This sub -district is located on either side of Yakima Avenue between Third Avenue and Sixth Avenue. It contains some of the strongest individual businesses in the downtown yet it BD-PLNN CBD Pian -Ch. 5 5 8/15/89 55 still contains a number of vacant or underutilized buildings. Some buildings have been converted to uses unrelated to the retail emphasis of this area. Primary retail uses in the district are furniture, hardware, musical instruments, bicycles, etc. These uses could form the core of a shopping district specializing in home furnishings and improvements, and related household entertainment needs. The Yakima Urban Area Zoning Ordinance should be reviewed to assure that this potential mix of uses can be accommodated within the current zoning designation or some new zoning designation to be created for this sub -district. WEST YAKIMA AVENUE, SIXTH AVENUE TO TENTH AVENIUE - This sub- district is located on the far western and northwestern edges of the study area boundary. This sub -district is oriented toward neighborhood level goods and services and appears to be serving well as a western CBD gateway. Care should be taken to support this district but sprawl into the adjacent residential districts should be discouraged. SECTION 2: KEY LAND USE ISSUES In addition to the land use recommendations included in the preceding discussion, several key land use issues important to the future development of the downtown need to be emphasized. These include the following: BD-PLNN CBD Plan -Ch. 5 6 8/15/89 56 Market Competition- The two most important issues to the future of the downtown are the erosion of the CBD's market share by dispersed discount and strip commercial retailing, and the potential movement from the CBD of major retail anchors to a new regional shopping center. The Yakima Urban Area Plan, adopted 1981, included policies intended to continue the revitalization of Yakima's Central Business District and to encourage new commercial development to locate within existing neighborhood and community commercial centers until the "need for a new center can be demonstrated." While land use policies directed to limiting shopping centers outside the CBD may restrict threats to the CBD, the CBD itself must be prepared to provide opportunities within the same economic parameters that a regional shopping center would expect. Major land assemblage will be required if location and expansion opportunities are to be provided. Without opportunity for new development within the CBD, such development will be forced to consider outlying areas. Redevelopment opportunities are more fully discussed in Chapter 6 - Development Opportunities. The Yakima Urban Area Zoning Ordinance should be reviewed and amended as necessary to limit the impact of future retailing outside of the Central Business District. Such action would be consistent with the adopted policy of the Yakima Urban Area Plan as well as the economic analysis contained within this Plan. BD-PLNN CBD Plan -Ch. 5 7 8/15/89 57 Pa_ rking- Parking is a major land use within the downtown and effects the availability of land for future structural development. Parking, whether provided through public or private means, must be balanced with the need for structural improvements. Within the CBD Core Area, the construction of multi-level parking decks over the existing public parking Tots should be encouraged to meet the future parking needs of the downtown. The City of Yakima's exemption of the Central Business District from off-street parking provisions adopted in 1957 should be examined and reviewed. Historic District Preservation - The Old North Yakima Historic District centered on North Front Street has been substantially strengthened through adaptive re -use of the existing buildings. While revitalization of the District is expected to continue, the District could be significantly harmed by inappropriate building demolition and/or development not consistent with the historic character of the area. Design guidelines should be developed for this Historic District and adopted by municipal code. Transition of Warehousing District - A policy decision and implementing zoning amendments are needed to set the direction for transition of the warehousing district located along Yakima Avenue between the railroad tracks and Third Avenue. BD-PLNN CBD Plan -Ch. 5 8 8/15/89 58 Neighborhood Preservation - Existing residential neighborhoods located within the CBD study area boundary provide needed housing and good neighborhood quality. However, some areas are faced with the possibility of encroachment by commercial uses. Neighborhoods may be protected from excessive commercial encroachments through the establishment of definite neighborhood boundaries and implementation of zoning standards to minimize impacts of adjacent development. However, some of these neighborhoods have been or will be so significantly impacted by commercial development that they should be recognized as "transitional" areas that are subject to redevelopment. PREFERRED LAND USE PLAN The preferred land use plan is based upon the recommendations of the four downtown studies and comments of the downtown group and area residents. The intent of the preferred land use plan is to establish an identifiable land use pattern for the Central Business District and to encourage future development consistent with the boundaries and descriptions of each of the six major land use categories. The preferred land use plan map (Figure 5-A) depicts and defines these land use categories. BD-PLNN CBD Plan -Ch. 5 9 8/15,89 59 The preferred land use plan guides the land use and physical development pattern within the CBD and identifies redevelopment opportunities to accommodate future growth. It also serves to guide the development of regulatory changes effecting the Central Business District. Anticipated regulatory changes include the development of a design guideline for the Historic District, amendment of zoning boundaries to identify and define the residential neighborhoods, and to allow residential uses within the CBD core area, and amendment of use regulations adversely affecting the mix of retail uses within the Central Business District. BD-PLNN CBD Plan -Ch. 5 10 8/15/89 60 the yakima downtown city of yakima, washin if 'Do of ;o aGO� r IJ aD W q L o oQCY❑ po o L.- fr lb - 1, co ° 2? o❑ ❑ 1--..% 'dal C:O p OC? Ic=' JL° IJ `gid i o 1n �q ❑j a 0 Q.: 0 d Q bc� 0 o/;off — oa • X11 r, _ flpopaOQhe� 8/(�2- 0 ,f233I El a ❑�i ' I d' r 1 L 1p1 L. ❑ � C7 L t nlapt_ , � I I 1� OtJ`r;o° �oOO i 4v 0 OS ��•G°teOft 0° a;\///, `60 0r * . J 4Q c 0 0 0 ' 0 , Legend especially on street level. Drive-in ; area. Office buildings and multi-level 1. RESIDENTIAL: Residential n commercial encroachment and/or i or banking services. PROFESdesign standards should be `ructures which are either of historic 2. INSTITUTIONAL / service agencies, educational facil cial residential uses. 3. ENTERTAINMENT, LODGINGvides an area for light industrial uses related support facilities catering tc 4. COMMERCIAL SUPPORT: ted area for City, County and other more than three stories in height V1 61 CHAPTER SIX REDEVELOPMENT OPPORTUNITIES This section will be developed and made part of this Plan at a future date. BD/PLNN CBD Ran Chpt. 6 1 62 CHAPTER SEVEN CAPITAL IMPROVEMENT PROGRAM The Downtown Plan references several projects which will require funding by the City of Yakima for implementation (possibly other government funds would also be required, however these would result from the City's requesting such funds). This Capital Improvement Program (CIP) attempts to list these, define action needed, and estimate costs. In addition to government funded projects, there are numerous references to private projects suggested by the technical reports. These proposals were presented as concepts for consideration by business and property owners. This CIP does not attempt to list these projects. PROJECTS TIME FRAME ESTIMATED COST 1. Yakima Avenue Gateway: Landscaping enhancements to Yakima Avenue from 9th treet east to the freewa . 1990 $ unknown 2. Street Tree Replacement: Phased replacement of street trees with new trees and/or plantings. Ongoing $10,000/yr. 3. Historic District Public Parking Facility: Construct public parking facility serving the North Front Street Historic District and Track 29 develo•ment area. 2000 $ unknown 4. Front Street LID: Streetscape and road improvements to enhance the North Front Street Historic District, funded by LID. 1990 $200,000 BD-PLNN CBD Plan CHPT 7 1 8/16/89 63 5. Front Street Infrastructure: Repair or replacement of City utilities prior to reconstruction of Front Street if Front Street improvements are programmed. 1995 $70,000 6. Lincoln/"B" Street: West End: Reconstruct access to the Lincoln/"B" Street one-way couplet system from Summitview and 2000 $ unknown Lincoln. 7. Lincoln/"B" Street: East End: 1998 Signing and striping to provide revised access of Lincoln/"B" Street one-way couplet system to Yakima Avenue via 6th St. & 8th St. 8. Chestnut Ave.: Convert to two-way: 1990 Signing, restriping and signalization (1st St. & Chestnut) to convert Chestnut Avenue to a two- way street. 9. "A" Street: Convert to two-way: 1990 Signing, striping and signalization (1st St. & 3rd Street west to Front Street) to convert "A" St. to a two-way street. , 10. Downtown Street Lighting Project: 1992-1998 Develop Downtown Street Lighting Plan and implement Downtown Street Lighting Enhance- ment Project. $ unknown 11. I-82/Yakima Avenue Study: 1989-1990 Joint intergovernmental study is now underway to evaluate current and future design improve- ments needed to facilitate I-82/Yakima Avenue interchange. $40,000 12. City Hall Renovation/Reconstruction 1995 Project: $ unknown Evaluate costs and benefits of alternatives to renovate existing City Hall or construct new facility. BD-PLNN CBD Plan CHPT 7 2 8/16/89 64 13. Naches Avenue Improvements: Renovate and enhance landscaping and lighting on Naches Avenue within CBD. 1989-1991 $ unknown 14. Transit Transfer Facility Study: 1989-1990 Location and design study is being conducted to relocate transit transfer site from using public ri•ht-of-wa to an off-street facilit . $80,000 15. Transit Transfer Facility: 1990/1991 Acquire land and construct new transit transfer facilit . $500,000 16. CBD/Yakima Avenue Signal System 1989-1990 Enhancement: $200,000 New intersection signal systems are on order to replace existing older signals that do not function adequately. 17. Yakima/8th Street Intersection: 1989 Project to redesign and improve Yakima Avenue and 8th Street intersection has been funded and should be completed in 1989. $1 87,000 18. Yakima/6th Street Intersection: 1990 Project to upgrade Yakima Avenue and 6th $1 00,000 Street intersection signal system has been funded and should be completed in 1990. JMNIIIIN 19. Yakima Convention Center Parking Area 1989-1990 Landscaping (East Parking Lot): $7,500 Replace irrigation system and remove and replace dead or diseased trees and shrubs. 20. Long Range CBD Street Resurfacing: 1999 Resurface Lincoln Ave. (No. 1st St. to 10th St.) $2,459,000 Yakima Ave. (7th Ave. to 16th Ave. & Front St. to 8th St.), Naches Ave. (Walnut to Lincoln Ave.), Chestnut Ave. (Front St. to 6th St.) North 1st Ave. (Yakima to Lincoln Ave.) & 2nd Ave. (Lincoln to Walnut.) BD-PLNN CBD Plan CHPT 7 3 8/16/89 65 7th avenue commo yajc'41 M,.c . yakima source; kasprisin design group c .e.Fi &ed ed 1 Artists Concept from Urban Design Element of design and development opportunities at West End of Lincoln Ave./"B" Street Couplet connection to Yakima Avenue & Summitview 66 Preliminary Report for Staff Review The City of Yakima, Washington CENTRAL BUSINESS DISTRICT MARKET SHARE AND REGIONAL ECONOMIC BASE STUDY August 21, 1987 CBD MARKET SHARE STUDY City of Yakima, Washington TABLE OF CONTENTS PAGE NO. CHAPTER 1 - MARKET CAPTURE 1 COMPETING RETAIL CENTERS MARKET AREA RETAIL SALES CAPTURE . RETAIL GROWTH POTENTIAL CBD MARKET SHARE WHERE PEOPLE SHOP SUMMARY 1 3 6 10 13 15 18 CHAPTER 2 - RETAIL MIX AND MARKET ORIENTATION 21 CONCLUSIONS 27 CHAPTER 3 - PERCEPTIONS OF THE DOWNTOWN 29 SHOPPING ENVIRONMENT 30 MERCHANDISING 33 TRANSPORTATION AND PARKING 36 GEOGRAPHIC VARIABILITY 37 SUMMARY 42 CHAPTER 4 - PROPERTY OWNERSHIP AND LEASE ANALYSIS 45 ENTREPRENEURIAL ABILITY 45 PROPERTY OWNERSHIP AND LEASE PATTERNS 46 CRIME 47 CHAPTER 5 - ASSETS AND DEFICIENCIES 51 ECONOMIC 51 FUNCTIONAL 53 DESIGN - 55 SUMMARY 57 ?RE. CBD MARKET SHARE STUDY City of Yakima, Washington PAGE NO. CHAPTER. 6 - DEVELOPMENT STRATEGIES . . . . . . . . 59 ECONOMIC STRATEGIES . . . . . 62 FUNCTIONAL STRATEGIES 70 DESIGN STRATEGIES . . ....•• . • •• • 77 CHAPTER 7 - IMPLEMENTATION . . . . . . . . . 83 ORGANIZATION.. . . . . 060 ......... RESPONSIBILITIES ......... ......... PUBLIC SECTOR ROLE . 0000,900 RECOMMENDATIONS. o•••••• . 8000 ••• •• APPENDIX APPENDIX I -- ACTIVITIES BY CATEGORY APPENDIX II -- SHOPPER SURVEY APPENDIX III -- MERCHANT SURVEY wips Lgir 84 86 92 93 CBD MARKET SHARE STUDY NNW City of Yakima, Washington LIST OF TABLES TABLE NO. 1.1 TAXABLE RETAIL SALES COMPARISON 1.2 RETAIL MARKET CAPTURE, 1984-85 TAXABLE RETAIL SALES ' 1.3 RETAIL MARKET CAPTURE, 1980-81 TAXABLE RETAIL SALES . . . 9 1.4 RETAIL SALES LEAKAGE, 1984-85 11 1.5 RETAIL GROWTH DUE TO POPULATION GROWTH (LOW ESTIMATE) 12 1.6 RETAIL GROWTH DUE TO POPULATION GROWTH (HIGH ESTIMATE) 12 1.7 RETAIL SALES COMPARISON' 13 1.8 YAKIMA CBD RETAIL GROWTH POTENTIAL 15 1.9 PREFERRED SHOPPING LOCATION 16 3.1 SURVEY COMPARISON, SHOPPERS VS. MERCHANTS . . 31 3.2 SURVEY COMPARISON, PEOPLE WHO WORK IN CBD VS. PEOPLE WHO DO NOT WORK IN CBD 32 3.3 MARKET BASKET SURVEY 35 3.4 AVERAGE SURVEY RESPONSE SCORES BY LOCATION OF SURVEY 39 3.5 AVERAGE SURVEY RESPONSE SCORES BY LOCATION OF RESIDENCE (OUTSIDE URBAN AREA) , . . . 40 3.6 AVERAGE SURVEY RESPONSE SCORES BY LOCATION OF RESIDENCE (INSIDE URBAN AREA) 41 PAGE NO. 7 8 FIGURE NO. 1.1 7.1 BU(NIR. WIILIS s �AIUFF LIST OF FIGURES PAGE NO. CENTRAL BUSINESS DISTRICT MARKET SHARE ANALYSIS 4 CENTRAL BUSINESS DISTRICT MARKET SHARE STUDY 87 CBD MARKET SHARE STUDY City of Yakima, Washington CHAPTER 1 MARKET CAPTURE Retailing has historically been the cornerstone of economic activity within downtown Yakima. As a result one of the most basic objectives of this study is to determine how to improve and increase retail activity. As with all aspects of a free-market economy how- ever, retailing is drivers by profit. It is important, therefore, for any recommendations regarding retail expansion to be based upon a realistic understanding of profit potential, given the limitations of the Yakima market. This chapter will explore two key aspects of the Yakima retail market to determine what potential, if any, there is for retail growth. The first factor is an examination of retail "leakage" — or, in other words, the amount of retail sales which should be captured by the retailers in the Yakima market area but which is actually being captured by retailers in other market: areas. Secondly, this chapter will examine the potential for retail growth based on anticipated population growth trends within the Yakima market area. COMPETING RETAIL CENTERS A prerequisite to analyzing the performance of local retailers is to define the boundaries of the market area. Defining the market area, in turn, requires an understanding of the nature and location of competing centers. Shopping centers are typically grouped into four classifications based on market orientation: super regional, regional, community and neighborhood. A super regional center typi- cally contains at least three full -line department stores and a BiO R Willis f kk1UFF 1 CBD MARKET SHARE STUDY City of Yakima, Washington retail gross leaseable area (GLA) of 750,000 square feet or more. A regional center has at least two major department stores and a retail GLA of between 300,000 and 750,000 square feet. A community center is commonly anchored by a junior department store, a variety store or a discount department store and contains 100,000 to 300,000 square feet of GLA. Neighborhood centers are the smallest of the four categories and are generally anchored by a supermarket or variety store. Categorizing an area such as do own Yakima is difficult be- cause the array of retail stores includes some aspects of all four categories and because the substantial number of non -retail activ- ities in the downtown has the effect of diluting the impact of the retailing which is available, because of the dispersion of activities. In general, the Yakima central business district (CED) is probably equivalent to a super regional center, or at least a very large regional center As a result, the market area definition will focus on competi- tion with other cities which contain regional and super regional centers. Portland distance The most obvious competing centers are Seattle, Tacoma, and Spokane. Although all four cities are a considerable from Yakima, they are also significantly larger than Yakima and, thus, have the lure of greater variety and selection. The fifth and final center deemed to be in the regional class is the Tri -Cities area. The Columbia Center in Richland meets the criteria for a regional center, and its combined population is great enough to warrant the inclusion of the Tri -Cities in this analysis Although not used to define Yakima's market area boundary, it is also helpful to examine some of the more moderately-sized centers of retailing (and population) in central Washington because they BUNWIL[ f \furs 2 CBD MARKET SHARE STUDY City of Yakima, Washington represent potential sources for retail areas Lake, Wenatchee and Goldendale. Because of their limited population base, retailing in. each of these cities is equivalent to a community into the Yakima market. This list leakage from their market includes Ellensburg, Moses center. However, the performance, in terms of retail capture, of these centers is enhanced by the re1latively large distances separating them from the nearest available regional center. Closer to home are several shopping area of the Yakima CBD. While none of the centers within the market e centers are large enough to compete on an even basis with the downtown, they are important because they represent intervening retail opportunities which may keep many shoppers from driving an extra few miles to the downtown. Foremost among this group is the Valley Mall in Union Gap. The Valley Mall comes close to meeting the definition of a regional mall, but falls short in terms of the range of merchandise and the magni- tude of the anchors. Nob Hill Plaza is a typical community center, with Wards as a relatively strong anchor.The downtowns of Sunny- side, Selah and Toppenish also are in the (community center category, although their ability to maintain a solid retail base is question- able, with significantcompetition with Ykima. Finally, the West Park Mall, Meadowbrook Mall and the Chalet Mall are on the border between being neighborhood centers and community centers. MARKET AREA The definition of the market area accomplished using Reilly°s Law of Retail for the Yakima CBD was Gravitation. Using this formula, it is possible to determine the point between any two centers where a shopper would theoreticail',y not have any preference for one center over another. The key factors in determining the location of this point are the distance between the two centers and BU(NfR. WILLIS f ?R[UFF 3 YAKIMA MARKET AREA (32LALLAM 44,048 51,648 SAN .111? 7,8381 STATE OF WASHINGTON WHATCOM \ OKANOOAN 106,701 ----- SKAGIT 30,639 FERRY 1 STEVENS PEND r• ORE1lLE 1 I SNOHOMISH 45,061 rem DOUGLAS I GRAYS \ '" I �HARBOY ,1 31184j— \ (66,314 , 1 R1ERCL 11,580 I SPOKANE 1 , 15,965 - - _ _ !MASON KITSAP i a 4,\; 124,264 ) L��t,g YA L:=1! /"H URS YOh - `' i EW.IS i 56,02S i 17.23 !' 1, }._rte 1 1` j • v- �C.UWiI 3,832 - Portland SMSA - 2,292,961 485,643 SKAMAMA 9,548 7,919 :LARK ; 192,227 - -- ADAMS Mose Lake __J `anaburg 4+E �- ••'.: 1 _ /,3 FRANKLIN ..-4T_,`,`.35,025 ;I.BENTON t s: 1 :;• :: 3 = l::?. TrI—Cltliss 13,267 rWALLA r:. '- / WALLA ASOTIN 1 4,057 I 16,823 341,835 r WHITMAN m 40,103 -.� GARFIELD\-, KLICKITAT 15,882 Central Business District Market Share Analysis City of Yakima, Washington 47,435 Figure 1.1 CBD J`, RKET SHARE ARE STUDY City of Yakima, Washington the size of each center. The larger one center is in relation to the other center (i.e., the greater the difference in the quality and quantity of shopping opportunities), the more the point of indiffer— ence is skewed to one side or the other. In calculating the Yakima market area, the driving distance between centers was used to indicate geographical separation and both population and retail sales were used as measures for center size. Both measures gave nearly identical results. Figure 1.1 shows the boundaries of the Yakima CBD market; area. As it turns out, the mar— ket area limits approximate the limits of Yakima County. Neither those areas inside the market area but outside the County, nor those areas inside the County but outside the market area contain signifi— cant concentrations of consumers. For this reason, the market area population has been assumed to be roughly equal to the Country popula— tion. For the most part, this 7iarket area definition is consistent with the results of the interviews of downtown businessmen. Only the largest and most specialized stores reported a regular clientele outside of this area, and evert in those cases it accounted for only a small percentage of total volume. As with any economic model, it is important to understand the limitations of theory as it applies to the real world. First, the theory assumes that travel in either direction between any two cen— ters is equally convenient. In fact, the mountain passes separating Yakima from Seattle can make travel more difficult. Thus, shoppers in cities such as Ellensburg which theoretically are just outside the Yakima market area may actually choose Yakima over Seattle because of the potential for bad weather at the pass. Secondly, market areas vary for different kinds of goods. Obviously, someone near the outer edges of the Yakima market area is not going to drive all the way to Yakima to buy a quart of milk. Commonly available (or -low order") BU(N1R WI1l]S t RA11111 CBD MARKET SHARE STUDY City of Yakima, Washington goods will have smaller market areas than will specialty (or "high order") goods. The market area described here is oriented toward the high order goods one would normally associate with a regional shop- ping center. Finally, there will always be people from inside the market area who go outside to shop and people outside the market area who come inside to shop. In theory, the boundary of the market area defines that point at which those two groups of shoppers counter- balance each other. RETAIL SALES CAPTURE Given a market area definition, evaluating the performance of Yakima retailing involves comparing actual retail sales to antici- pated retail sales. Actual sales in excess of anticipated sales indicates a better than average performance. Actual sales below anticipated sales indicates a worse than average performance. If actual sales are less than anticipated sales, the difference is referred to as retail sales leakage. This represents the dollar volume of sales that theoretically could be captured by Yakima retailers if they become more competitive with outside markets. In this case, actual retail sales were measured using taxable retail sales by unit of government and by category of store as reported by the State of Washington. To avoid the effects of seasonal variations, eight quarters of data were averaged to yield annual sales volume. Since there are no significant retail outlets in the areas where the market area and Yakima County diverge, the figures for County retail sales are used as an approximation of market area retail sales. Table 1.1 shows a comparison of County sales and City sales for the 1980-81 and 1984-85 periods. Although the overall City share has remained nearly the same, within specific BU(N� WfiU5 6 CBD MARKET SHARE STUDY City of Yakima, Washington categories there have been some rather dramatic shifts both up and down. Anticipated sales is calculated by multiplying market area population by average retail sales per capita. As discussed earlier, County population will be used as an approximation of market area population. Average per capita sales (by store category) for the State of Washington was the starting point for the second half of the equation. These numbers were then adjusted to reflect the differ- ences in income between the State and Yakima County. This adjustment factor, based on data from consumer expenditure surveys of the Bureau of Labor Statistics, accounts for two distinct effects of the income differential. The most obvious effect, of course, is that the average resident of Yakima County has fewer dollars to spend than the average resident of the State. The second effect is that people with lower incomes tend to spend a greater proportion of their total income than do people with higher incomes. Thus, the adjustment factor for per capita sales is somewhat less than the proportional differences in total income. TABLE 1.1 TAXABLE RETAIL SALES COMPARISON YAKIMA COUNTY AND THE CITY OF YAKIMA CATEGORY 1980-81 AVERAGE ANNUAL SALES 1984-85 AVERAGE ANNUAL SALES PERCENT PERCENT COUNTY CITY CITY COUNTY CITY CITY Building Materials/Hardware 48,361 25,837 53.42% 45,288 20,749 45.82% General Merchandise 75,389 42,444 56.30% 95,588 43,013 45.00% Food 69,375 38,453 55.43% 86,722 45,644 52.63% Auto Dealers/Gas Stations 121,058 61,830 51.07% 145,868 79,138 54.25% Apparel/Accessories 30,720 20,166 65.64% 33,168 23,342 70.37% Furniture/Furnishings 20,850 15,420 73.96% 27,180 20,076 73.86% Eating/Drinking 64,781 38,595 59.58% 74,024 44,611 60.27% Miscellaneous Retail Stores _52 199 32,637 62.52% 69,804 47,532 68.09% TOTAL RETAIL 482,731 275,380 57.052 577,720 324,103 56.102 -1(111. IWS 7 CBD MARKET SHARE STUDY City of Yakima, Washington TABLE 1.2 RETAIL MARKET CAPTURE 1984-85 TAXABLE RETAIL SALES ($000) CATEGORY AVERAGE MARKET YAKIMA YAKIMA PERCENT PERCENT SALES AREA SALES COUNTY CITY COUNTY CITY PER CAPITA POTENTIAL SALES SALES CAPTURE CAPTURE r Building Materials/Hardware $ 226.31 $ 40,623 $ 45,288 $ 20,749 111.48% 51.08% General Merchandise 520.30 93,395 95,588 43,013 102.35% 46.06Z Food 462.39 82,999 86,722 45.644 104.49% 54.99% Auto Dealers/Gas Stations 740.20 132,866 145,868 79,138 109.79% 59.56% Apparel/Accessories 197.78 35,502 33,168 23,342 93.43% 65.75% Furniture/Furnishings 221.65 39,787 27,180 20,076 68.31% 50.46% Eating/Drinking 500.55 89,848 74,024 44,611 82.39% 49.65% Miscellaneous Retail Stores 461.06 82,760 69,804 47,532 84.34% 57.43% TOTAL RETAIL $3,330.25 $597,780 $577,720 $324,103 96.64% 54.22% The results of the comparison between actual and anticipated sales are shown in Table 1.2. Overall, nearly 97 percent of esti- mated retail sales potential was captured by retailers in Yakima County. Retail stores in the building materials, general merchan- dise, food and auto dealer categories performed best -- capturing more than 100 percent of their market potential. The apparel, furniture, eating/drinking and miscellaneous categories performed less well, ranging from 68 percent to just over 93 percent capture rates. For purposes of comparison, Table 1.3 shows the same figures for the 1980-81 period. The performance of area retailers was somewhat better during that time period with total sales equal to just over 100 percent of market area potential. General merchandise and miscellaneous retailing are the only categories which posted gains between 1980-81 and 1984-85. On a county -wide basis, all other cate- gories posted losses in the percent of market captured, with the greatest losses experienced by the apparel and accessories sector, followed by auto dealers and gasoline stations. R1X . WIIUS TIN 8 CBD MARKET SHARE STUDY City of Yakima, Washington TABLE 1.3 RETAIL MARKET CAPTURE 1980-81 TAXABLE RETAIL SALES ($000) CATEGORY AVERAGE MARKET YAKIMA YAKIMA PERCENT PERCENT SALES AREA SALES COUNTY CITY COUNTY CITY PER CAPITA POTENTIAL SALES SALES CAPTURE CAPTURE Building Materials/Hardware $ 236.52 $ 40,800 $ 48,361 $ 25,837 118.53% 63.32% General Merchandise 439.89 75,881 75,389 42,444 99.35% 55.94% Food 373.44 64,418 69,375 38,453 107.69Z 59.69% Auto Dealers/Gas Stations 584.05 100,749 121,058 61,830 120.16% 61.37% Apparel/Accessories 160.68 27,717 30,720 20,166 110.83% 72.76% Furniture/Furnishings 174.75 30,145 20,850 15,420 69.17% 51.15% Eating/Drinking 427.46 73,736 64,781 38,595 87.85% 52.34% Miscellaneous Retail Stores 392.91 67,777----I 52199 32,637 77.02% 48.15% TOTAL RETAIL $2,789.70 $481,223 $482,731 $275,380 100.31% 57.22% Tables 1.2 and 1.3 also show the percentage of the market potential being captured by retail stores within the City of Yakima. Currently, the City is capturing nearly 55 percent of the market, down slightly from the 57 percent in 1980-81. The auto dealer and apparel categories are the only two sectors above the average 55 percent capture rate and both are below their capture rates of the 1980-81 period. Given that the City contains only 30 percent of the market area population, the 55 percent capture rate is certainly respectable, although not exceptional, given its preeminent position in the County's retail market hierarchy. For informational purposes, the 1967 Central Business District Plan included estimates of future market sales potential for the CBD. After adjusting for inflation, the 1967 report estimated a sales potential for Yakima's CBD of $3129235,000 or 96% of total City actual sales. (Estimated CBD capture of 1985 actual sales is $125,945,000 - See Table 1.7.) The 1967 Plan, of course, could not anticipate the proliferation of intervening opportunities, small shopping centers, in Yakima, competing for a share of a finite "pie". BU(NR. WIIUS f P�IIIFE 9 CBD MARKET SHARE STUDY City of Yakima, Washington In addition, total population in Yakima County is approximately 10% • less than the 1967 forecast. (Nonetheless, a 10% error in almost 20 years is not unexpected.) RETAIL GROWTH POTENTIAL The "bottom line" of this process is, of course, a determination of how much potential there is for retail sales growth. The two primary sources of increased retail sales -- retail leakage and market area growth -- have been treated separately. All estimates of retail growth potential are expressed in current dollars without adjustment for the effects of future inflation. The estimates do include, however, an adjustment factor to convert taxable retail sales to gross retail sales. For most categories, the adjustment is only a matter of a few percentage points. The adjustment is more substantial for categories such as food, for example, where a large proportion of gross sales are non-taxable. Retail sales leakage represents consumer dollars which theor- etically should be captured within the market area but for one reason or another are not. Thus, those dollars are a potential source of retail sales growth for retailers who can improve their competitive- ness. The estimated volume of retail sales leakage is shown in Table 1.4. Where estimated retail sales potential for the market area exceeded actual County sales, the difference represents market area leakage. Total leakage is slightly less than $44 million. In those categories where leakage existed, the share of potential sales which could be captured by the City was calculated by applying the City's current share of total retail sales. Finally, an adjustment was made to convert taxable sales to gross sales, as discussed above. The total retail growth potential for the City due to retail leakage is just over $33 million. BU(ll. WINS t guir 10 CBD MARKET SHARE STUDY City of Yakima, Washington TABLE 1.4 RETAIL SALES LEAKAGE 1984-85 ($000) CATEGORY MARKET YAKIMA CO. COUNTY CITY COUNTY CITY AREA SALES SALES LEAKAGE LEAKAGE LEAKAGE LEAKAGE POTENTIAL (TAXABLE) (TAXABLE) (TAXABLE) (GROSS) (GROSS) Building Materials/Hardware 40,623 45,288 0 0 0 0 General Merchandise 93,395 95,588 0 0 0 0 Food 82,999 86,722 0 0 0 0 Auto Dealers/Gas Stations 132,866 145,868 0 0 0 0 Apparel/Accessories 35,502 33,168 2,334 1,642 2,396 1,686 Furniture/Furnishings 39,787 27,180 12,607 9,311 13,468 9,947 Eating/Drinking 89,848 74,024 15,824 9,537 16,399 9,883 Miscellaneous Retail Stores 82,760 69,804 12 956 8,822 j,033 11 599 ---.- TOTAL. RETAIL 597,780 577,720 43,721 29,313 49,296 33,115 The second element of retail growth depends upon population growth within the market area. As a result, a key factor in the calculation is an estimate of future population change. A variety of population projections exist for the County yielding a wide range of results. For the purposes of this section, two projections will be utilized. The first is a relatively conservative projection yielding a 1996 market area population of 192,700, an increase of 13,200 people over the 1984 population. This is equivalent to an annual growth rate of 0.6 percent, significantly below the actual growth rate during the 1970s. The second projection uses an annual growth rate of 1.0 percent and yields a 1996 market population of 202,300. Tables 1.5 and 1.6 show the effects of this anticipated popula- tion increase. To begin with, sales per capita were adjusted to reflect gross sales rather than taxable sales. Then the adjusted per capita sales figures were multiplied by the projected population change to yield projected increases in market area retail sales (assuming a 100 percent capture). Using the low projection, total retail sales for the market area are expected to increase by $64 mil- lion by 1996. The City's share of this increase, again using the City's current share of total sales, is equal to $36 million. B119-11 IN11.11 11 CBD MARKET SHARE STUDY City of Yakima, Washington TABLE 1.5 RETAIL GROWTH DUE TO POPULATION GROWTH (LOW ESTIMATE) CATEGORY SALES ADJ. SALES PER CAPITA PER CAPITA INCREASE IN GROSS SALES ($000) CITY SHARE (TAXABLE) (GROSS) 1989 1991 1996 1996 Building Materials/Hardware $ 226.31 $ 242.43 1,333 1,867 3,200 1,466 General Merchandise 520.30 571.24 3,142 4,399 7,540 3,393 Food 462.39 1,269.26 6,981 9,773 16,754 8,818 Auto Dealers/Gas Stations . 740.20 1,208.67 6,648 9,307 15,954 8,655 Apparel/Accessories 197.78 203.04 1,117 1,563 2,680 1,886 Furniture/Furnishings 221.65 236.79 1.302 1,823 3,126 2,309 Eating/Drinking 500.55 518.72' 2,853 3,994 6,847 4,127 Miscellaneous Retail Stores 461.06 606.15 3,334 4,667 8,001 5,448 TOTAL RETAIL $3,330.25 $4,856.31 26,710 37,394 64,103 36,102 TABLE 1.6 RETAIL GROWTH DUE TO POPULATION GROWTH (RIGH ESTIMATE) CATEGORY SALES ADJ. SALES PER CAPITA PER CAPITA INCREASE IN GROSS SALES ($000) CITY SHARE (TAXABLE) (GROSS) 1989 1991 1996 1996 Building Materials/Hardware $ 226.31 $ 242.43 2,230 3,127 5,527 2,533 General Merchandise 520.30 571.24 5,255 7,369 13,024 5,861 Food 462.39 1,269.26 11,677 16,373 28,939 15,231 Auto Dealers/Gas Stations 740.20 1,208.67 11,120 15,592 27,558 14,950 Apparel/Accessories 197.78 203.04 1,868 2,619 4,629 3,258 Furniture/Furnishings 221.65 236.79 2,178 3,055 5,399 3,988 Eating/Drinking 500.55 518.72 4,772 6,691 11,827 7,128 Miscellaneous Retail Stores 46f.06 606.15 5,577 7,819 13,820 9,410 TOTAL RETAIL 53,330.25 $4,856.31 44,678 62,646 110,724 62,359 Using the high projection, total retail sales for the market area are expected to increase by $110 million by 1996. The City's share of this increase is estimated at $62 million. Total retail growth potential for the City over the next ten years is equal to $33 million of captured leakage plus $36 to BST WS gill 12 CBD MARKET SHARE STUDY City of Yakima, Washington $62 million in market area growth -- or a total of $69 to $95 million (assuming a 100 percent capture rate or a sufficient off -setting inflow of dollars to counter -balance an expected outflow of dollars). CBD MARKET SHARE It is important, of course, to take this analysis one step fur- ther and evaluate the performance of CBD retailers. Unfortunately, it is difficult to isolate downtown businesses precisely. Table 1.7 contains estimates of downtown retail sales and compares them to TABLE 1.7 RETAIL SALES COMPARISON ($000) CBD CBD CITY SHARE CBD' SHARE COUNTY Building Materials/ Hardware General Merchandise Food Auto Dealers/Gas 20,749 29.6% 6,135 13.6% 45,288 43,013 73.5% 31,625 33.1% 95,588 45,644 52.9% 24,160 27.9% 86,722 Stations 79,138 10.5% 8,335 5.7% 145,868 Apparel/Accessories 23,342 81.9% 19,120 57.6% 33,168 Furniture/Furnishings 20,076 54.9% 11,020 40.b% 27,180 Eating/Drinking 44,611 31.6% 14,075 19.0% 74,024 Miscellaneous Retail 47,532 24.1% 11,475 16.4% 69,804 TOTAL RETAIL 324,103 38.9% 125,945 21.8% 577,720 1 Estimated 1985 retail sales for businesses in the CBD. B(JUll. WILliS f BAILIFF 13 CBD MARKET SHARE STUDY City of Yakima, Washington sales in both the City and County. The results are mixed. In gen- eral merchandise, apparel and furniture, the CBD does fairly well. It competes poorly in the automotive, building materials and miscel- laneous retail categories. How much of the potential retail growth can the Yakima CBD cap- ture? That depends largely upon the skill of downtown merchants and the success of downtown improvement efforts. The retail environment in the Yakima area is unusually segmented and dispersed. Each of the scattered retail centers represents a shopping opportunity which may be sufficiently enticing to prevent any given shopper from driving the extra few miles to reach the CBD. To be successful, the downtown must -distinguish itself from these "intervening opportunities" so that driving the extra distance to the downtown will be perceived as worth the extra effort. The growth the downtown will also depend upon the downtown merchant's willingness and ability to integrate retailing with other elements of the region's economic development efforts. Tourism, for example, represents a potentially lucrative pool of consumer dollars that would normally be outside of the market area. As a minimum, downtown merchants should strive to at least maintain their current market share. It is certainly possible to increase market share, although it is impossible to predict precisely how much could be captured. Table 1.8 indicates the potential increase in retail sales if the current market share is maintained, and the potential increase if a higher percentage of future growth is captured. This includes capturing both retail leakage as well as retail growth through 1996. BU(NIR WIIUS 4 RADII 14 CBD MARKET SHARE STUDY City of Yakima, Washington TABLE 1.8 YJQKIMA CBD RETAIL GROWTH POTENTIAL (New Sales) 1996 Increased Retail Sales ($000) POTENTIAL ADDITIONAL CURRENT MARKET CAPTURE PLUS: MARKET CAPTURE ADDITIONAL 10% ADDITIONAL 20% (CURRENT RATE) Building Materials/ Hardware General Merchandise Food' Auto' Dealers/Gas Stations Apparel/Accessories Furniture/Furnish. Eating/Drinking Miscellaneous Retail TOTAL 435- 752 2,496- 4,311 4,674— 8,074 909- 2,924- 6,737- 4,417- 3,214- 1,571 4,046 7,660 5,363 4,169 25,806-35,946 479- 827 2,745- 4,742 5,142- 8,881 1,000- 1,728 3,216- 4,451 7,411- 8,426 4,858- 5,899 3,536- 4,586 28,387-39,540 522- 902 2,995- 5,173 5,609- 9,689 1,891- 1,885 3,509- 4,855 8,085- 9,192 5,300- 6,436 3 857- 5 002 20,968-43,134 WHERE PEOPLE SHOP Another way of evaluating market capture is to look at where people normally shop for various goods and services. This was done through a shopper survey administered to roughly 500 people at a variety of locations across the community. Table 1.9 shows the results of this survey for 25 categories of products and services. 15 CBD MARKET SHARE STUDY City of Yakima, Washington TABLE 1.9 PREFERRED SHOPPING LOCATION IN UNION YAKIMA GAP OUTSIDE VALLEY OUTSIDE NO IN CBD CBD MALL YAKIMA RESPONSE Clothing - Work 52% 7% 14% 9% 18% Clothing - Dress 68% 5% 14% 9% 4% Shoes 63% 7% 16% 8% 6% Furniture 19% 15% 11% 8% 47% Books 48% 7% 10% 5% 30% Stationery 43% 13% 11% 9% 24% Gifts 51% 12% 12% 10% 15% Appliances 13% 20% 24% 8% 35% Hardware 10% 26% 24% 11% 29% Sporting Goods 14% 26% 10% 5% 45% Linens 40% 5% 8% 6% 41% Lunch 35% 19% 4% 9% 33% Fine Dining 37% 20% 4% 7% 32% Doctor 12% 55% 1% 23% 9% Dentist 10% 53% 1% 19% 17% Medicine/Phariaacy 11% 44% 8% 21% 16% Banking 46% 20% 4% 20% 10% Lawyer 28% 4% 1% 13% 54% Insurance 29% 14% 3% 18% 36% Auto Parts/Service 20% 25% 6% 17% 32% Groceries 27% 43% 6% 19% 5% Fine Wine 9% 9% 1% 10% 71% Cinema 10% 8% 20% 7% 55% Live Entertainment 21% 6% 0% 8% 65% Music/Dancing 15% 6% 0% 8% 71% ?IV WII[IS f yliff 16 CBD MARKET SHARE STUDY City of Yakima, Washington Prior to discussing individual product categories, however, there are several general points which should be made. First, the CBD is attracting a significant percentage of the shoppers in nearly every category. No other shopping center was even close to having such broad appeal. Second, the CBD was the dominant center by a large margin for those comparative shopping goods most typical of downtown retailing. Finally, the large number of competing centers has resulted in a dispersal of retailing activity which. is counter to the interests of the downtown. Although no other single center rivals the CBD, the 2 or. 3% share captured by each of several com- peting centers adds up to a significant drain from the downtown. The CBD scored best in the categories of clothing, shoes, books, stationery, gifts and linens. In each case, the downtown area was overwhelmingly the preferred shopping location. The downtown was also strong in the furniture, lunch, fine dining, banking, legal servies, insurance, live entertainment, and music and dancing categories. More people named the CBD as their primary shopping center for these goods and services than any other center, although not by a large margin. In the sporting goods, auto parts, groceries and fine wine cate- gories, the downtown was not the dominant center but still drew a respectable proportion of retailing activity. The CBD was weakest in the appliance, hardware, medical, dental, pharmacy and cinema categories. One factor which influenced preferred shopping locations was place of residence; although its effect was not uniform for different types of goods. Place of residence was least important for the clothing and shoe categories. A high percentage of people shopped in g11.9,1villus + BAILIFF 17 CBD MARKET SHARE STUDY City of Yakima, Washington the downtown for clothing items regardless of where they lived. The same was generally true for books, stationery and gifts, although the percentages dropped off to the extreme south and west. Place of residence was more important for service uses such as banks, lawyers and insurance agents. The farther one's residence from the downtown, particularly west and south, the lower the percentage of people who normally came downtown for such services. Finally, common goods such as groceries and hardware were the most sensitive to distance. Only in those areas immediately adjacent to the CBD were people likely to shop downtown. SUMMARY Presently, Yakima County retailers do an effective job of cap- turing available retail dollars when viewed as a whole. However, retailers in the 1984-85 period captured 3.67% fewer sales than their counterparts in 1980-81 (as a share of the total market). The same can be said for the City of Yakima's retail community. In 1980-81, they captured 57.22% of the market; by 1984-85, their "share" had declined to 54.22%. During the period from 1980-81 to 1984-85, Yakima County retail- ers experienced growth in only two areas (as measured by market capture), miscellaneous retail stores experienced a 7% gain and gen- eral merchandise improved its market capture by 3%. More importantly to this analysis, retailers in the miscellaneous category in the City of Yakima posted a 9% improvement in their market capture for the 1980-81 to 1984-85 period. However, their share of the market declined in every other category, for this period, with the most sig- nificant losses experienced in the building materials/hardware sector (-12.24%) and general merchandise sector. (Interestingly, City retailers in this sector lost 9.88% of their market, while for the BU(1111 WILDS f RM IFF 18 CBD MARKET SHARE STUDY City of Yakima, Washington County as a whole this was a growth area.) In summary, it appears as if most losses in market share are a result of greater competition from outside community and regional centers and not from the super regional centers. The one exception, which remains unexplained, is the furniture/furnishings sector which for both the 1980-81 period and 1984-85 period performed well below its market potential. RIXE 19 • CBD MARKET SHARE STUDY City of Yakima, Washington B,Jan. WIws f RM1iI F CBD MARKET SHARE STUDY City of Yakima, Washington CHAPTER 2 RETAIL MIX AND MARKET ORIENTATION One of the strengths of downtown Yakima as an urban center is its diversity of uses. The combination of public institutions, offices, retail shops, warehouses, restaurants and dozens of other uses creates a vitality and an intensity that is not duplicated else- where in the County. Paradoxically, this same diversity is also one of the downtowns greatest weaknesses when it comes to retailing. The synergism which should exist between the various retail stores in downtown Yakima is not as great as it could be because the mixture of uses and their relative location within the downtown has not been optimized. For most retail stores, and for comparative retailing in parti- cular, performance can be enhanced by being located within a cluster of similar stores selling related merchandise. Each store benefits from the shopping traffic attracted by the other stores and by its location in a "shopping center" which is more easily remembered than an isolated location. In order to make the most of these shared benefits, however, the location of various types of retail stores should be carefully considered, and not simply intermixed at random. A shoe store, for example, will do better surrounded by clothing and department stores than by auto parts stores and fast-food restaur- ants. The purpose of this chapter is to examine the land use mix of the Yakima CBD to determine its strengths and weaknesses, with a particular emphasis on retail uses. Included in this review will be a discussion of not only the relative location of existing uses, but also suggestions for additional uses commonly found in similar CBD 21 CBD MARKET SHARE STUDY City of Yakima, Washington environments but absent or under -represented in downtown Yakima. Due to the size of the study area, this review will focus on key sub- areas within the overall boundaries of the downtown. Each sub -area will be analyzed for the way its uses relate to each other and the way the area as a unit relates to other sub -areas nearby. Finally, any discussion of retail mix includes some assumptions regarding market orientation since no shopping district can be all things to all consumers. Thus, the perceived orientation, if any, of each A sub -area will also be explored. Subarea One In the eastern half of the downtown, the focus of retailing activity centers on the area between First Street and Naches Avenue, and between Chestnut and East A Street. This first sub -area contains the majority of the comparative retailing typically associated with a shopping center and is an obvious key to maintaining downtown's status as the region's primary retail center. The list of uses within this area is impressively diversified already. Thus, the following list of uses represents suggestions for improvement and expansion, rather than any glaring weaknesses. 1. Specialty clothing (e.g., bridal, maternity, uniforms, etc.); 2. China and glassware; 3. Bath accessories; 4. Video/stereo equipment; 5. Luggage; and 6. Sporting goods/exercise equipment/outfitters. ?t.{iiWiLlll S L RIf[FF 22 CBD MARKET SHARE STUDY City of Yakima, Washington More crucial than any possible gap in variety are the limita- tions imposed by the arrangement of existing uses. Most importantly, the Yakima Mall has too much of an inward orientation which. makes it difficult for the stores both within and outside the Mall to benefit from a cumulative drawing power. This perceptual gap between Mall and non -Mall is exaggerated by the physical gap caused by the vacant half block between Second and Third north of Yakima. In addition to retailing, this area contains two major office buildings, several banks and the Capitol Theater.. All of these uses are strong assets for the downtown and all are reasonably well located except for the Capitol Theater. Although it is an excellent facility for both local cultural events and for potential tourism attractions, the theater is not located near enough to other entertainment uses to form an "entertainment district" nor near enough to any motels to be an integral part of a tourism and convention facility. Subarea Two The second sub -area is east of Neches Avenue on either side of Yakima Avenue. This is the primary entrance into the CBD for those people who live outside of the City. As a result, its emphasis on tourism and convention facilities is entirely appropriate. Although a separate study will be examining the demand for additional motel and convention space, it does not appear on the surface as if any major expansion will be warranted. In addition to a variety of other uses, this area also contains a supermarket adjacent to a large undeveloped parcel of ground. It would seem logical to add a drug store to this site to create a small neighborhood shopping center to serve the needs of eastside residents as well as the motel and convention center patrons. BU(NiR WIil15 L.11[11[ 23 CBD MARKET SHARE STUDY City of Yakima, Washington Subarea Three The third sub -area is on the southern edge of the east side of the downtown between Chestnut and Spruce. This area does not have any dominant category of uses nor an easily definable character. If any theme does exist, it is probably one of personal and business services given uses such as office supplies, health spas, photog- raphers and the post office. Although these uses are supportive of the downtown as a whole, they seem to be largely independent of each other. Other uses which might be appropriate in this area are stores selling office and computer equipment, and service uses such as accountants and temporary employment agencies. Subarea Four The fourth sub -area, along either side of First Street, is an area in transition. Although First is still a major arterial, it is no longer a major highway route through the City and thus the highway service uses which once thrived are either gone or struggling for survival. So far, no new market niche has been developed to take the place of the highway service orientation. Unfortunately, this lack of direction coupled with the arterial emphasis of First Street adds to the perceptual barriers separating eastside and westside merchants. Subarea Five Immediately to the west of First Street is the Front Street area which is also in transition but which has already taken steps to de- fine a new and unique market niche. The area's emphasis on boutiques and specialty shops fits in well with the historic architecture and RIKR WILDS f R la 24 CBD MARKET SHARE STUDY City of Yakima, Washington with businesses such as the brewery. To be truly successful, how- ever, the area needs a greater intensity of shops and restaurants than it currently contains. Crafts, jewelry, gifts and plants are examples of the more obvious types of stores which would be appro- priate, but a much broader array of stores is possible, providing the scale remains small and the merchandise unusual or specialized. The proposed redevelopment of the railroad depot and the conversion of railroad cars into small shops will be excellent additions. Subarea Six The sixth sub -area, between East A Street and Lincoln Avenue, has a distinctly public and institutional flavor. This area contains the City and County offices, the new jail, the main library and a variety of churches. All of these uses are supportive of the downtown and appropriately located, although the displacement of residential development in the area has probably left the churches and schools somewhat isolated from their service population. It is recommended that any expansion of either City or County offices be cooperatively planned so that the "governmental center" emphasis can be maintained and enhanced. Furthermore, this would be an appro- priate area should the post office ever decide to relocate from their current downtown Location. This area also contains a substantial number of professional service uses located in small scale office buildings. This type of development is compatible with the other uses in the area and is likely to be the source of the majority of future development demand. Subarea Seven The west side of the downtown study area is less homogenous in the types of uses it contains and thus is harder to characterize and [11(g WIIUS f P J[Jrr 25 CBD MARKET SHARE STUDY City of Yakima, Washington subdivide into easily definable districts. The area between the railroad tracks and Third Avenue, for example, used to be dominated by warehousing and transportation uses. Although several of these operations are still in business, demand has obviously dropped sub- stantially and several of the old warehouse buildings now stand largely empty. To date there has been no successful redevelopment efforts nor is it clear that the existing buildings lend themselves to redevelopment. As it currently stands, this area is a blighting influence on the west side of the CBD and a major barrier separating eastside and westside merchants. Subarea Eight The next sub -area runs west to approximately Sixth Avenue and includes the land a block or two on either side of Yakima Avenue. It contains some of the strongest individual businesses in the downtown and yet it is clear that the area as a whole is not doing well. Many of the buildings are either vacant or under-utilized and still others have been converted to uses completely unrelated to the original retail emphasis of this area. The retailers which remain include furniture, hardware, musical instruments, bicycles and office equip- ment stores. Conceivably, these uses could form the core of a shopping district specializing in home furnishings and improvements, and related household and entertainment needs. Similar businesses include: 1. Lamps and lighting fixtures; 2. Curtains, drapes and blinds; 3. Major appliances; 4. Electronic supplies (e.g., Radio Shack); 5. Building supplies (with a do-it-yourself emphasis); BU(I . WILIiS L3/fig 26 CBD MARKET SHARE STUDY City of Yakima, Washington shington 6. Sewing machines; and 7. Floor coverings. In general, these uses generate more trips than do stores clothing. They can however, by creating taking advantage generated. Subarea Nine of single -purpose shopping carrying comparative shopping goods such as still benefit from proximity to each other, a more marketable image for the area and by what few multi-purpose shopping trips are The ninth and final sub -area is at the extreme western and northwestern edges of the study area boundaries. It is oriented toward neighborhood level goods and services and appears to be doing quite well. Most of the retail uses are located in small "strip center" developments which provide high accessibility and visibility but which tend to be perceptually unconnected to each other. The existing businesses cover the traditional neighborhood center uses so that any future development should probably specialize in serving different socio-economic groups rather than providing new categories of merchandise. CONCLUSIONS One of the reasons that outlying shopping centers have proven successful is that the developer can control both the mix of uses and their relative location to each other. This maximizes the impact of comparative shopping trips and allows the image of the center to be defined. U(1 k WILDS f R>slllll 27 CBD MARKET SHARE STUDY City of Yakima, Washington Transferring that approach to a central business district is generally less easy. To begin with, a downtown has numerous property owners rather than a single developer. Secondly, downtown merchants are traditionally independent and typically less organized than their shopping center counterparts. Finally, downtowns (by their very nature) include a much broader array of uses than would typically be considered for a shopping center. All these factors combine to thwart attempts to optimize land use mix. Despite the lack of abso- lute control, downtowns can influence their own land use mix by encouraging voluntary compliance with land use plans. For this approach to work, however, it is important that the plans have con- sensus approval from property owners and merchants. In downtown Yakima, the existing land use mix is adequate, but there is still room for improvement. Fortunately, there are rela- tively few physical barriers to be overcome and few major uses which are totally out of place. The most pressing need is for the market orientation(s) of the downtown to be more precisely defined so that the preferred land use pattern and the appropriate physical improve- ments can be. planned in a logical manner. E. WILDS f purr 28 CBD MARKET SHARE STUDY 54(0. ,..4141467.101141:4 n 4s4,4},. '"titli 0 YalciMal, ,;2,7,5y. ey CHAPTER 3 ,PMEPTIONS OF THE DOWNTOWN aoo'nm 53. .•c:5551.5) '"1.v 515,155 ; " r .55;.15f,,55 ORft,Lw95nfyaluatps.ctpe performance of Ole. downtown and t J'v.JWS.7.j :giClqqC ,s14s1,Ir lig f -or improvements is to gather the opinions of --exceja 09ppes.t 1he s:FkPRT aftera11,who ;at imat e 1 y de t er- klaiRss,1 ofty, hqpin dlstrict by, with their dpara Fe si tspf.:„.„1.140 a.survey indicate how shoppers per- ceive the downtown 4.n relation to alternative shopping choices. This chaper,wip.;. reqpw, and fompare the results of three separ- ate surveys. The first survey was given to shoppers at a variety of shopping centers throughout theyakiTa urban area (including the CBD). , The second survey, s1m41r1p content to the first, was given to a,selection,of merchants ifn the downtown area. This second survey allows the shopper's., percept,ions. to be compared with those of the merchants to determine,whether,Olemerchants view the downtown the , same as their custopleys,c The fel survey was designed primarily as an origin/destination,slAryeyOtinlndes some questions which are relevant to this discussion of downtown perceptions. It was dis- tributed to people parked in the downtown area. In general the downtown fared quite well. The vast majority of respondents shopped in the downtown on a regular basis (at least monthly), a sign that the downtown is widely perceived as an impor- tant shopping center. When asked to rate the downtown on a scale of 1 to 5 (with 1 being worst and 5 being best), the average scores typically were near 4. There were, of course, aspects of the down- town which scored poorly, but based on similar projects in a variety of cities and states, the Yakima CBD is perceived as having far fewer weaknesses than those surveyed by the Consultant in the past. 29 BIJA Lpfurr CBD MARKET SHARE STUDY City of Yakima, Washington Contrary to what was expected, merchants were substantially more critical of the downtown than were shoppers. Further, an examination of shoppers who work downtown compared with shoppers who do not revealed that those people who work downtown have a lower opinion of the downtown's shopping experience than individuals who shop in the downtown but work elsewhere. Table 3.1 includes a comparison between the responses of shoppers and the responses of downtown merchants. The distribution of answers from both surveys is given for each of 17 evaluation criteria. In addition, a mathematical average (mean) score was calculated for each question. Table 3.2 includes the responses of people who work downtown with the responses of those who do not work downtown. SHOPPING ENVIRONMENT There were seven questions designed to explore various aspects of the physical appearance of the downtown and its relative conven- ience. When asked to rate the overall shopping environment, shoppers were generally very positive. Forty-five percent (45%) gave a score of 5 and the average score was approximately 4. Merchants were less satisfied. Forty percent (40%) rated the shopping environment as only fair, and their average score was just 3.1. The convenience of shopping downtown was perceived less well by shoppers, but somewhat better by merchants, although the merchant rating was still lower than the shopper rating. The average shopper score was 3.87, while the average merchant score was 3.25. Despite the relatively high shopper rating, 15 percent (15%) rated conven- ience as either a 1 or a 2. Only two other criteria had a greater percentage of low scores (parking and traffic). BtKNIT WIRIS Aar 30 CBD MARKET SHARE STUDY City of Yakima, Washington TABLE 3.1 SURVEY COMPARISON SHOPPERS vs. MERCHANTS QUESTION RESPONSE PERCENTAGES POOR FAIR GOOD AVERAGE 1 2 3 4 5 SCORE Shopping Environment Prices Selection of Goods Convenience Special Sales Events Window Displays Advertising Store Hours Service & Assistance Store Interiors Building Appearance Street Lighting Transit Service Parking Conditions of Sidewalks Street & Directional Signs Traffic Shopper 4 3 22 25 45 4.01 Merchant 5 20 40 30 5 3.10 Shopper 3 5 35 25 32 3.78 Merchant 0 5 25 45 25 3.90 Shopper 5 5 24 26 40 3.91 Merchant 5 15 25 30 25 3.55 Shopper 7 8 18 25 42 3.87 Merchant 0 25 30 40 5 3.25 Shopper 4 5 26 30 35 3.87 Merchant 5 10 35 45 5 3.35 Shopper 3 5 26 28 37 3.88 Merchant 4 37 37 11 11 2.88 Shopper 2 5 19 28 46 4.11 Merchant 0 15 50 30 5 3.25 Shopper 2 5 17 24 51 4.14 Merchant 0 4 11 53 32 4.13 Shopper 4 5 21 27 43 4.00 Merchant 0 6 33 50 11 3.66 Shopper 2 2 19 31 46 4.17 Merchant 0 15 35 45 5 3.40 Shopper 3 5 26 29 38 3.97 Merchant 10 35 45 10 0 2.55 Shopper 3 6 24 32 34 3.85 Merchant 5 15 35 40 5 3.25 Shopper 4 3 13 37 42 4.07 Merchant 0 17 11 39 33 3.88 Shopper 35 14 21 13 17 2.63 Merchant 40 30 5 25 0 2.15 Shopper 4 6 27 32 32 3.85 Merchant 10 10 40 40 0 3.10 Shopper 2 6 19 34 39 4.02 Merchant 0 10 30 50 10 3.60 Shopper 8 10 26 26 29 3.55 Merchant 0 20 45 30 5 3.20 The quality and appeal of window displays received an average rating of 3.88 from shoppers, but only 2.88 from merchants. Seventy- four percent (74%) of the merchants rated window displays as either a 2 or a 3. It should be noted that answering this question is compli- cated by the fact that there are not very many traditiional window B1JUIER WIFUS } k\IUFF 31 CBD MARKET SHARE STUDY City of Yakima, Washington displays in the downtown for sidewalk pedestrians to view. People who worked in the downtown gave significantly lower scores than did those who did not work downtown (an average of 3.52 vs. 3.94). TABLE 3.2 SURVEY COMPARISON PEOPLE WHO WORK IN CBD vs. PEOPLE WHO DO NOT WORK IN CBD QUESTION RESPONSE PERCENTAGES POOR FAIR GOOD AVERAGE 1 2 3 4 5 SCORE Shopping Environment CBD 4 3 34 23 36 3.84 Non -CBD 4 4 19 25 48 4.09 Prices CBD 4 7 41 24 24 3.57 Non -CBD 3 4 35 26 33 3.85 Selection of Goods CBD 13 8 29 26 24 3.40 Non -CBD 4 5 22 25 44 4.00 Convenience CBD 6 11 28 15 40 3.72 Non -CBD 7 9 17 25 42 3.86 Special Sales Events CBD 5 5 24 33 34 3.89 Non -CBD 4 5 27 28 36 3.87 Window Displays CBD 6 11 34 23 26 3.52 Non -CBD 3 4 25 27 40 3.94 Advertising CBD 3 8 27 27 34 3.78 Non -CBD 1 5 17 28 49 4.19 Store Hours CBD 4 9 20 23 44 3.94 Non -CBD 2 4 18 24 52 4.20 Service & Assistance CBD 2 5 30 33 29 3.79 Non -CBD 5 4 17 25 49 4.09 Store Interiors CBD 2 3 28 33 34 3.94 Non -CBD 1 2 16 30 50 4.23 Building Appearance CBD 4 14 34 22 26 3.52 Non -CBD 2 3 24 30 41 4.05 Street Lighting CBD 2 10 26 28 34 3.82 Non -CBD 4 6 25 32 34 3.89 Transit Service CBD 6 2 13 38 40 4.01 Non -CBD 3 3 14 36 43 4.10 Parking CBD 41 13 27 10 10 2.38 Non -CBD 33 14 19 16 19 2.77 Conditions of Sidewalks CBD 5 12 25 28 29 3.61 Non -CBD 4 4 27 31 34 3.87 Street & Directional Signs CBD 2 9 23 37 29 3.82 Non -CBD 2 5 19 31 42 4.03 Traffic CBD 7 12 33 24 23 3.41 Non -CBD 9 11 26 23 31 3.56 Store interiors received a higher average score from shoppers (4.17) than any other category. Seventy-seven percent (77%) rated BU(N� WItUS £ P�IIIFF 32 CBD MARKET SHARE STUDY City of Yakima, Washington interiors as either a 4 or a 5. Again, shoppers who work in the CBD were somewhat more critical than those who do not. Eighty percent (80%) of the merchants gave a 3 or a 4 as their response, and the average score was 3.4. The question of building appearance generated the greatest degree of disagreement between shoppers and merchants. The shopper survey yielded a relatively high average score of 3.97. The merchant survey, on the other hand, yielded an average score of only 2.55 -- the second lowest average score of,all 17 questions (parking being the lowest). Ninety percent (90%) of the merchants surveyed rated building exteriors as a 3 or less, compared with 34 percent (34%) of the shoppers. Shoppers who work downtown were more critical than those who do not (3.52 vs. 4.05), but were considerably more positive than the merchants. Street lighting received moderate scores from both shoppers and merchants (3.85 and 3.25 respectively), and there was little distinc- tion between CBD and non -CBD workers. The condition of the sidewalks also received an average score of 3.85 from the shopper survey, while merchants were somewhat less sat- isfied (average score = 3.10). No merchant rated sidewalks as a 5. As a group, questions regarding the shopping environment scored slightly higher than the average for all 17 questions. MERCHANDISING Six of the 17 questions evaluated various aspects of downtown merchandising. The first question, for example, looked at how com- petitive downtown prices are compared with other shopping centers. BU(t . WILUS t RJllff 33 CBD MARKET SHARE STUDY City of Yakima, Washington Although both shoppers and merchants gave downtown relatively high marks (average scores of 3.78 and 3.90, respectively), this is the only category where shoppers gave lower scores than did merchants. This seems to indicate that shoppers are somewhat more likely to view the CBD as being high-priced. It could be, however, that this difference in perception is based on a higher quality of merchandise rather than on any real difference in the pricing structure. That appears to be the case based on a "market basket" survey comparing prices in the Yakima CBD with prices in Richland (Columbia Center), Bellevue, Union Gap (Valley Mall), ,and Ellensburg. The results of that survey, shown in Table 3.3, indicate that only the Valley Mall is less expensive, and only by an average of 5 percent. The other shopping areas have average prices 7 to 11: percent higher. Although the twenty items in the market basket were all common, name -brand items, five of the items could not be found at the Valley Mall, and nine could not be found in Ellensburg. This suggests a more limited selection and less name -brand merchandise. The selection of goods available in the downtown received a fairly good average score from the shopper survey of 3.91. People who worked in the downtown, however, were not as enthusiastic (3.40 vs. 4.00). Merchants gave the selection of goods a relatively high 3.55 rating. Special sales events received moderate scores from everyone. The average shopper score was 3.87 and the average merchant score was 3.35. The quality and timeliness of advertising was judged excellent by the shoppers (average score = 4.11), although people who worked in the CBD were again more critical (3.78 vs. 4.19). Fifty percent B1K!1 WILL15 + RA1UFF 34 CBD MARKET SHARE STUDY City of Yakima, Washington TABLE 3.3 MARKET BASKET SURVEY .11911111.1181121.11 PRODUCT YAKIMA CBD RICHLAND BELLEVUE VALLEY MALL ELLENSBURG 1. Men's Dress Shirt $ 20.00 $ 22.50 $ 21.00 $ 20.00 $23.87 2. Wrist Watch $ 26.99 $ 25.99 $ 29.95 $ 24.88 $24.95 3. Monopoly Game $ 9.99 $ 9.99 $ 9.99 $ 8.99 $ 8.88 4. Men's Running Shoes $ 69.95 $ 71.95 $ 69.98 N/A N/A 5. Women's Pantyhose $ 4.00 $ 4.00 $ 4.00 $ 4.00 $ 4.00 6. Polaroid Camera _8169.00 $169.00 $169.00 $169..00 N/A 7. Cassette Tape $ 8.99 $ 9.49 $ 8.99 $ 8.99 $ 8.99 8. Rechargeable Flashlight $ 19.99 $ 28.99 $ 28.99 $ 24.87 $15.99 9. Bath Towel $ 13.99 $ 16.00 $ 16.00 $ N/A N/A 10. Vacuum Cleaner $129.99 $ 99.00 $144,00 N/A N/A 11. 35 -mm Print Film $ 4.99 $ 4.98 $ 4.30 $ 4.29 $ 4.98 12. Men's Blue Jeans $ 18.99 $ 19.95 $ 22.95 $ 23.99 $32.00 13. Perfume $ 42.50 $ 45.00 $ 45.00 N/A N/A 14. Luggage $129.99 $175.00 $175.00 $ 91.88 N/A 15. Notebook Paper $ 2.95 $ 3.49 $ 3.69 $ 1.39 N/A 16. Car Wax $ 5.99 $ 8.99 $ 8.99 $ 6.99 $ 8.25 17. Men's Navy Blazer $195.00 8149.00 $195.-)0 N/A N/A 18. Handheld Vacuum 8 44.95 8 44.99 $ 41.99 $ 31.99 $37.99 19. Vitamins $ 14.99 $ 16.00 $ 18.00 $ 15.49 N/A 20. Crock Pot $ 26.99 $ 25.99 $ 26.99 $ 25.99 $27.99 (50%) of the merchants thought that the downtown did only a fair job of advertising. Their average score was 3.25. Store hours received uniformly high marks from everyone. The average score from shoppers and merchants was nearly identical (4.14 vs. 4.13). It should be pointed out, however, that the Yakima Mall was the destination of most of the downtown shoppers and that it has much longer hours than do the independent non -mall businessmen. Thus, the results are not clear as to whether shoppers are equally pleased with all downtown retailers or whether the respondents were thinking primarily of stores in the mall. When asked specifically about store hours in the CBD, two-thirds of the shoppers preferred RUM, PLUS f ?AILIFF 35 CBD MARKET SHARE STUDY City of Yakima, Washington the current hours. Thirteen percent (13%) wanted stores to open earlier, and twenty percent (20%) wanted stores to stay open later. The quality of service and assistance received from sales clerks was rated highly by both shoppers and merchants. The average score from the shopper survey was 4.00, and the average merchant score was 3.66. Overall, the merchandising group of questions scored better than average (3.97 vs. 3.85) and had the highest rating of the three criteria groups. TRANSPORTATION AND PARKING The four questions relating to transportation and parking had the lowest scores as a group, although two of the questions received relatively high scores. Transit service, for example, received an average score of 4.07 from shoppers and 3.88 from the merchants sur- veyed. When respondents to the origin/destination survey were asked specifically about transit usage, however, roughly three-quarters said the households surveyed do not make use of bus service. The most numerous suggestions for improving transit service were to make bus service more frequent and to have bus service last later into the evening. Parking was the area where the downtown received the worst evaluation. Nearly fifty percent (50%) of the shoppers and seventy percent (70%) of the merchants rated parking as a 1 or a 2. Average scores were 2.63 for the shopper survey and 2.15 for the merchant survey -- the lowest score given to any of the evaluation criteria. Again, people who work downtown were more critical than those who do not. When asked to pinpoint parking and traffic problems in the R1ith . WIFUS f R JFiFF 36 CBD MARKET SHARE STUDY City of Yakima, Washington downtown, the most common responses from the origin/destination survey were that empty parking spaces are too hard to find and that parking lot charges are too high. Street and directional signs scored relatively well in both sur- veys. The shopper survey yielded an average score of 4.02, and the merchant survey an average score of 3.60. The issue of traffic congestion and ease of traffic movements was another area which scored relatively poorly. Forty-four percent (44%) of the shoppers thought that traffic was no better than fair; which dropped the average score to 3.55. Sixty-five percent (65X) of the merchants gave scores of 3 or below, although none of the mer- chants rated traffic as a 1. GEOGRAPHIC VARIABILITY In addition to looking at total survey response, it is often helpful to examine response by geographic sub -areas. Understanding how different areas perceive the downtown can aid in developing appropriate marketing strategies and can help define which market segment is likely to respond best to various downtown improvements. To explore the potential for geographic variability, the survey responses were categorized by place of survey and place of residence. The results of the shopper survey by place of survey, shown in Table 3.4, reveal relatively little variability. Although one would suspect that shoppers in outlying shopping centers would tend to have a lower -than -average opinion of the downtown, they were, instead, fairly consistent with the overall survey results. In fact, the only survey groups which were consistently more critical of the downtown than average were those conducted at Nordstrom's and in the Westside 6U(NFR WINS Ri�FF 37 CBD MARKET SHARE STUDY City of Yakima, Washington area of the downtown. There were, however, some notable differences between total survey response and the response from surveys taken outside the downtown. First, the competitiveness of downtown prices tended to be rated lower than average, particularly at centers with an off-price orientation such as K -Mart and the Valley Mall. Secondly, parking and traffic generally scored lower at those shop- ping centers in the western part of the City. Finally, surveys taken at locations on or near,bus routes rated transit service as better than average. When the survey results were broken down by place of residence, more variability was discovered but there was no clear pattern. In general, people living outside the Yakima urban area tended to be more positive about the downtown than average. This was particularly true for people living near Yakima or adjacent to Interstate 82 near such cities as Toppenish, Sunnyside, Prosser or Ellensburg. The shopping environment, selection and special sales events were those categories which scored unusually well. The locations more critical than average of the downtown were generally small towns in outlying locations such as Tieton, Naches and White Swan. Survey responses from inside the Yakima urban area were divided into 26 neighborhood districts. The average scores for each district are shown in Table 3.6 with districts grouped by geographic area. Unfortunately, it is difficult to discern any clear trends except that people in the western districts were generally more critical of parking and traffic. In addition, surveys from the western districts were somewhat more likely to be critical of the downtown in general while the central and south central districts were somewhat more likely to perceive the downtown more favorably than average. BU(1-111. Wit1S 2A11111 38 TABLE 3.4 AVERAGE SURVEY RESPONSE SCORES BY LOCATION OF SURVEY Shopping Environment 4.0 4.4 e 3.8 14.0 4.3 4.1 4.3 4.0 3.6 4.0 4.01 1 Prices 3.5 3.7 3.8 3.0 4.1 3.1 4.0 3.4 3.7 3.9 3.78 Selection 3.8 3.1 3.9 3.7 3.8 4.0 4.0 3.7 3.5 3.9 3.91 Convenience 4.0 3.4 3.7 3.6 3.7 3.6 4.3 4.1 3.1 3.9 3.87 Special Sales 3.7 4.0 3.7 2.0 3.7 3.8 4.0 4.0 2.9 3.9 3.87 Window Displays 3.9 4.8 4.1 3.5 3.9 4.3 4.1 3.6 3.4 3.9 3.88 Advertising 4.2 4.0 4.1 3.5 4.2 4.4 - 4.1 4.0 4.0 4.1 4.11 Store Hours 3.9 4.9 4.3 4.3 3.8 4.4 4.2 4.0 4.1 4.2 4.14 Service and Assistance 3.2 3.9 3.8 4.2 3.9 4.2 4.1 4.0 4.0 4.0 4.00 Interiors 4.0 4.1 3.8 5.0 4.1 4.4 4.5 3.7 4.0 4.2 4.17 Building Appearance 3.9 4.3 3.8 4.2 4.1 4.0 4.1 3.6 4.2 3.9 3.97 Street Lights 3.8 4.0 4.1 4.8 3.9 4.2 4.2 3.7 3.9 3.9 3.85 Transit Service 3.7 4.8 4.7 N/A 4.4 4.3 3.8 4.0 3.8 4.0 4.07 Parking 2.9 1.8 2.3 5.0 1.8 2.8 2.8 2.6 3.0 2.7 2.63 Sidewalks 3.7 4.0 3.9 5.0 3.8 3.9 3.9 3.7 3.1 3.8 3.85 Street Signs 4.0 4.2 4.4 2.8 3.8 4.1 4.0 4.0 4.3 4.0 4.02 Traffic 3.8 2.8 3.3 3.0 3.3 3.6 4.0 3.6 3.0 3.6 3.55 Number of Surveys 11 8 18 5 44 19 41 33 7 317 503 TABLE 3.5 AVERAGE SURVEY RESPONSE SCORES BY LOCATION OF RESIDENCE (OUTSIDE URBAN AREA) • G. ° w$ " °4 ti Shopping Environment 4.3 3.7 4.1 4.8 4.7 3.6 4.2 4.4 4.3 3.5 4.01 3.78 Prices 3.0 4.0 3.8 3.8 3.7 3.3 3.8 4.1 4.7 4.2 3.91 Selection 4.0 3.0 3.9 3.8 4.2 3.8 4.2 4.1 4.8 4.5 3.87 Convenience 4.3 3.2 3.6 3.8 4.2 3.2 4.2 4.1 3.5 4.7 3.87 Special Sales 3.7 3.7 3.6 4.4 4.2 3.2 4.2 3.9 4.3 4.0 3.88 Window Displays 4.3 2.7 3.8 4.0 4.0 4.0 4.2 4.1 4.5 3.0 4.11 Advertising 3.5 3.7 4..1 4.6 4.7 3.9 4.2 _ 4.5 4.0 4.0 Store Hours 3.0 3.0 4.2 4.8 5.0 3.7 4.0 4.3 4.5 4.0 4.14 4.00 Service and Assistance 3.6 2.5 3.9 3.8 4.5 2.8 4.1 4.4 4.2 4.2 Interiors 4.3 3.5 4.0 5.0 5.0 4.0 3.6 4.6 4.4 4.2 4.17 3.97 Building Appearance 3.7 4.0 4.0 4.5 5.0 4.2 4.2 4.4 4.0 4.2 Street Lights Transit Service 4.7 5.0 4.0 4.4 3.9 4.3 4.7 5.0 5.0 5.0 3.7 3.7 4.2 3.9 3.6 3.5 4.0 5.0 5.0 N/A 3.85 4.07 Parking 4.7 2.4 2.3 2.7 4.7 2.3 2.8 3.6 2.7 4.2 2.63 Sidewalks Street Signs 4.0 5.0 3.4 3.8 3.8 4.0 4.2 4.3 4.7 4.2 3.5 3.7 4.0 4.0 3.9 4.4 4.3 3.5 N/A N/A 3.85 4.02 Traffic 4.7 3.0 3.4 4.5 3.3 3.4 3.8 4.3 3.6 N/A 3.55 Number of Surveys 3 6 33 6 4 23 15 40 9 4 503 Shopping Environment 3.4 3 5 4 Prices 3.7 3.4 3 Selection 3.7 3.8 Convenience 3 9 3.7 3 Special Sales 3.4 3.7 3 Window Displays 7.5 4.0 3 Advertising 3.9 3.6 4 Stare Hours 1.5 4.1 4 Service and Asslatance 3.9 3.8 3 interiors 3 4 1 6 4 Building Appearance 3.3 3.6 4 Street Llghta 4.0 3.6 4 Transit Service 4.7 4.7 4 Parking 2 8 2.5 2 Sidewalks 3.8 3.6 3 Street Signs 3.4 3.h 4 Traffic 3.8 3.3 1 Number of Surveys 8 17 TABLE 3.6 AVERAGE SURVEY RESPONSE SCORES BY LOCATION OF RESIDENCE (NEIGHBORHOOD DISTRICTS INSIDE URBAN AREA) FAR NEST NEAR WEST CENTRAL SOUTH CENTRAL NEAR EAST FAR EAST TOTAL 13 17 20 21 2 6 14 15 18 7 8 16 19 22 21 24 25 3 9 10 4 11 12 26 ALL SURVEYS .2 3.5 3.8 4.3 1.9 3.7 3 5 4.2 4.0 1 9 4.1 4.1 4.2 5.0 4.3 4.0 4.3 3.8 1.9 4.5 4.1 4.3 4.0 5.0 4.01 .8 3.7 3.6 4.0 3.5 3.7 3.7 3.6 4.0 3.2 4.2 4.1 3.6 3.0 3.7 3.6 4.6 3.5 3.6 3.5 3.8 4.3 4.0 5.0 3.78 .9 3,3 3.6 3.9 3.3 4.0 3.8 3.5 2.7 3.7 4,1 4.1 4.1 5.0 3.7 4.1 4.7 3.8 3.8 4.5 4.1 4.0 3.5 3.0 3.91 .6 4.0 3.7 3.8 4.3 4.0 3.3 4.0 3.0 3.6 4.3 4.2 4.1 5.0 3.7 4.0 4.2 4.4 4.0 4.0 3.5 4.3 3.0 5.0 3.87 .7 3.7 3.8 4.3 3.9 3.9 3.7 3.9 4.5 3,3 4.4 4.4 4.3 2.0 3.0 3.8 4.4 3.8 3.8 4.0 3.9 3.3 3.0 5.0 3.87 .6 4.5 3.6 4.2 3.4 3.7 3.6 4.0 3.7 3.9 4.0 4.0 4.3 5.0 4.0 4.2 4.9 4.0 3.8 3.0 3.8 3.7 2.5 5.0 3.88 .0 4.3 3.9 4.1 4.4 4.3 4.11 4.11 4.0 3.7 4.6 4.3 4.3 1.0 5.0 4.4 4.4 4.1 3 8 3.0 3.8 4.1 3.0 3.0 4.11 .4 4.2 3 9 4.6 4.2 4.3 4.2 4.3 4.3 1.5 4.2 4.5 3.7 3.0 5.0 4.1 4.7 4.1 3.9 4.5 4.0 4.7 4.0 4.0 4.14 .9 3.5 3.9 4 6 4.0 4.0 3.3 4.5 3.0 3.6 4.1 4.2 4.4 5.0 5.0 4.0 4.4 4.0 3.7 5.0 4.1 3.3 4.0 5.0 4.00 .3 4.8 3.9 4.2 1 9 4.3 3.5 4.4 4.0 4.0 4.1 4.6 4.4 1.0 5.0 4.1 4.9 4.5 3.7 4.5 3.8 4.) 4.5 5.0 4.17 1 4 3 3.9 3.9 3.5 3.9 3.4 3.6 2.7 3.7 4.2 4.1 4.2 4.0 4.0 4.0 4.1 3.9 3.0 3.8 3.5 4.3 4.5 5.0 3.97 .6 4.1 3.9 4 2 4.0 4.0 3,9 4.2 3.0 3.1 3,4 3.9 3.9 5.0 5.0 3.) 4.4 4.0 3.3 4.2 3.9 3.3 3.0 N/A 3.85 .3 5.0 3.8 4 0 3 5 4.7 3.8 4.1 4.5 3.7 4.4 4.5 3.9 5.0 N/A 4.2 4.0 4.1 2.7 4.0 2.8 4.5 N/A 3.0 4.07 .4 2.3 2.5 2.7 2.0 2.8 3.0 2.2 1 6 2 9 2.6 2.5 2.3 N/A 2.5 1.7 2.1 2.9 2.8 2.8 2.2 3.3 3.0 5.0 2.63 9 4.0 3.8 4.2 1.2 3 2 3.9 3.8 3 / 1.9 4.1 3.6 4.0 5.0 5.0 3.6 4,4 3,7 3.4 4.0 3.6 4,7 3.5 5.0 3.85 .2 3.8 3.8 4.6 4.1 4.11 4.0 3.8 2.7 3 8 4.3 3,8 1,9 5.0 5.0 4.1 4.9 3.7 3.8 4.2 3.9 3.3 3.5 N/A 4.02 .3 3 9 3.2 3.0 3.9 3.5 3.2 3.2 3.7 3.4 3.5 1.9 3.5 N/A 2.5 3.2 3.9 3.7 3.8 4.6 3.3 4.0 4.0 2.0 3.55 In 8 29 14 8 19 13 21 3 17 20 48 17 I 4 12 10 23 12 5 20 1 2 1 503 CBD MARKET SHARE STUDY City of Yakima, Washington SUMMARY The perception people have of downtown Yakima is varied by the three groups evaluated (shoppers working outside of the CBD, shoppers working inside the CBD, and merchants). However, regardless of the group, certain criteria evaluated consistently rated sufficiently low to warrant attention and improvement. • Parking is consistently thought to be a problem by all three groups entering and utilizing downtown Yakima. Given the large number of vacant spaces in the mall, this problem deserves serious attention to resolve what apparently is a perceptional and/or cost problem. • Traffic is also perceived as somewhat problematic. While rating above average or between fair and good, minor improvements in this category might reap significant gains. Since, overall, shoppers perceive the Downtown's shopping envi— ronment as above average, a preliminary conclusion which can be drawn is that topics which should be addressed, beyond the two functional areas discussed above, include merchandising, advertising, and "experience development. In other words, the Downtown needs to become "the" place to shop, not "a" place to shop. 11(11[R, WIll1S f A11111 42 CBD MARKET SHARE STUDY City of Yakima, Washington CHAPTER 4 SOCIAL AND ECONOMIC FACTORS Downtown Yakima is more than just a place, it is also a network of people, business agreements and social interactions. Depending upon its characteristics, this network can either be an asset or a liability to downtown revitalization efforts. This chapter briefly reviews three of these characteristics to determine their probable impact on the downtown. ENTREPRENEURIAL ABILITY A key determinant of the success of any downtown revitalization program is the existence of local entrepreneurs willing to invest their time, effort and money. Although this is true for the long-term survival of any business district, it is particularly important for a downtown where starting a new business venture often requires rehabilitating, modifying, combining or razing older buildings. Being able to see the potential in an otherwise obsolete structure requires vision and creativity that many businessmen lack. It is also important for this entrepreneurial ability to be local rather than from Seattle or Spokane. Only local entrepreneurs are likely to have the local knowledge, contacts and commitment to take full advantage of the opportunities which the Yakima CBD presents. National chain stores, for example, often avoid non -mall locations simply because they do not want to spend the time necessary to deal with the problems inherent in downtown development. Although there is no way to measure entrepreneurial ability, recent events and interviews with downtown businessmen, property BXI1 RWIC 1115 f RA�IJEE 45 CBD MARKET SHARE STUDY City of Yakima, Washington owners and community leaders indicate that there is no shortage of entrepreneurs in Yakima. The formation and professional management of the Yakima Mall, the renovation of the Capital Theatre and North Front Street buildings, and the adaptive re -use of the railroad tracks and produce warehouses illustrate that the local entre- preneurial spirit is alive and well. Despite past sucesses, downtown merchants and property owners need to keep searching for new ways to stimulate investor interest. At a minimum, new projects should ,be given as much publicity and public recognition as possible to reward downtown investment. In addition, the City should continue its policy of cooperating with downtown revitalization efforts. PROPERTY OWNERSHIP AND LEASE PATTERNS Another factor influencing the success of redevelopment efforts is the' current pattern of property ownership. Local owners are generally easier to work with because their commitment to Yakima's future is stronger and because they are more likely to be personally involved in downtown activities. The City conducted an occupancy and ownership survey to determine, among other things, current ownership/leasing patterns within the Central Business District. Unfortunately, the return rate of the survey was relatively low and thus the resulting data is incomplete. From those surveys which were returned, more than 90% indicated local ownership. Of all business respondents, 34% owned their own building, while 15% were renters and 51% had leases. Building ownership was more common on the west side (40%) than on the east side (30%). Those BU(N� wit's RAIUEF 46 CBD MARKET SHARE STUDY City of Yakima, Washington businesses which rented or leased their space tended to have relatively short-term leases. Over 70% of the leases will expire in less than five years. This is typical of most retail leases and results in a beneficial degree of flexibility. Despite relatively short lease terms, business locations have been fairly stable. Thirty-five percent of all respondents have been in the same location for more than ten years. Of those businesses that had moved, two-thirds had their previous location in the CBD as well. Furthermore, only nine percent plan to relocate from their current store and the majority of those (62%) plan to stay in the downtown area. CRIME One of the hallmarks of a successful downtown is its ability to attract people from throughout the region. Unfortunately, downtowns often attract troublemakers as well. The intensity of activities and the diversity of people in the downtown area provide numerous oportunitiesfor crime and relative anonymity for criminals. As a result, crime is an issue of concern in downtowns across the country, and even in suburban shopping malls. Based on a review of police statistics for the Yakima CBD, there is certainly a basis for concern but there does not appear to be any epidemic of crime. An equally important issue, however, is whether or not there is a general perception that the downtown is a high crime area. If the CBD is perceived as being unsafe, then it will be more difficult to attract new customers and businesses. Such a perception can be a major deterrent to downtown revitalization even if it is untrue. B1J1R WRNS LgEirr 47 CBD MARKET SHARE STUDY City of Yakima, Washington It is recommended that the City, in conjunction with downtown merchants and property owners, develop a program to reduce both actual crime and any public perception of the CBD as a crime area. As with most of the recommendations in this report, this program needs to be on-going rather than just a one-time effort. A joint public/private task force should be established to develop crime prevention strategies and monitor their effectiveness. In order to cut down on actual crime, there are a number of steps which can be taken. First, it is recommended that particular emphasis be placed on discouraging those illegal activities, such as drug dealing and prostitution, which attract other criminals into the area. Secondly, it is recommended that merchants become more active in crime prevention through "neighborhood watch" type programs. Businesses which have been the location of trouble in the past should be encouraged to take more responsibility for the behavior of their customers. Third, the police department should try to increase the frequency of downtown patrols, particularly in areas identified as trouble spots. Downtown merchants may want to supplement_ normal police patrols either with private security services or with off-duty police officers. These supplemental patrols, however, should not be used as a rationale to reassign policy patrols elsewhere. There are still other steps which can be taken to make people feel safe when they come downtown. First, the location and intensity of street lights should be checked and improved where necessary to maintain a high level of illumination along all sidewalks and throughout parking areas (including employee parking areas). Second, the visibility of police and security patrols should be maximuzed. Foot patrols should be considered as a means of accomplishing this objective. In certain situations, it may even be appropriate to have patrolmen in period uniforms to coincide with historical events or RUGIR; WI�US f RAIUEF 48 CBD MARKET SHARE STUDY City of Yakima, Washington celebrations. Finally, vacant buildings should be securely sealed and regularly maintained to avoid attracting vagrants and to avoid the appearance of decay. BUOR WI US t RpEF 49 CBD MARKET SHARE STUDY City of Yakima, Washington ?.1(1111; wIWS f k�IFF CBD MARKET SHARE STUDY City of Yakima, Washington CHAPTER 5 ASSETS AND DEFICIENCIES Although the information in the preceding chapters is informa- tive, it is important that the mountain of data not obscure the broader trends and characteristics. The purpose of this chapter is to synthesize and simplify this information in order to extract those assets and deficiencies which are most critical to future growth in the CBD. The general goal, of course, is to build upon each of the assets of downtown while minimizing each deficiency. In practice, however, it is recommended that the downtown focus on those assets and defici- encies which will have the greatest impact on growth and which can be addressed most easily. ECONOMIC The Yakima CBD is the largest single shopping district between Seattle and Spokane. This is an important asset because it means that Yakima should be able to "capture" retail sales from outside its market area. The Yakima downtown is sufficiently larger than competing centers that it can attract those shoppers who occasionally desire greater variety or more specialized goods than they can find locally. Although these trips are likely to be infrequent, they are a valuable source of potential growth. This same factor will help convince local shoppers to bypass the closest shopping center in favor of the downtown. Size is also an advantage in recruiting new businesses, particularly for specialty stores which require a certain "critical mass" before they become feasible. BUIR WETS muff 51 CBD MARKET SHARE STUDY City of Yakima, Washington On the other hand, Yakima's share of the retail market (and probably the CBD's share, as well) is declining. If this decline continues, the downtown could lose key stores and the ability to distinguish itself from other shopping centers. It is particularly important to retain the four, full -line department stores and the specialty shops which are unique to larger centers. It seems prob- able that the decline stems largely from the increasing prominence of discount and strip -center retailing which erodes downtown sales by stressing price and convenience advantages. A second asset is the diversity of retailing activities which downtown Yakima contains. This contributes to a vitality that most shopping centers lack and facilitates a beneficial interaction between different types of uses. Many of the advantages related to this asset, unfortunately, are being lessened by the lack of a clearly defined image for each sub -area in the downtown. This makes it more difficult for shoppers to keep an accurate "mental map'° of businesses in the CBD and it decreases the likelihood of each shopping trip containing stops at several related stores rather than just one store. A third asset is that the downtown is the focus of several aspects of the Yakima economy. In addition to being the largest retailing center, the CBI) contains the major governmental offices, most of the tourism and convention facilities, and the highest concentration of service (office) uses. This proximity allows each sector to be supported and enhanced by the other sectors so that the whole becomes greater than the sum of the parts. However, there is still room for improvement; particularly with respect to taking better advantage of the valley's tourism potential. There needs to be a better connection, for example, between the downtown and the fairgrounds so that each area can take advantage of the other's facilities and drawing power. KKR WILtiS Lgurr 52 CBD MARKET SHARE STUDY City of Yakima, Washington The most prominent economic deficiency, aside from the inability to fully capitalize on its assets, is the struggle to keep the physi- cal form of the downtown in step with the current demands of the economy. It is clear that the structure of downtown Yakima, and nearly every downtown across the country, was based on the economic demands of a different era. This is evidenced by the various physi- cal alterations that have taken place to, for example, create the Yakima Mall or accommodate the increasing prevalence of the automo- bile. The issue is one of balancing the need to stay consistent with current economic trends against tAe feasibility of altering the physical form of the downtown. A good example is the warehouse district which parallels the railroad tracks. Although once a vital part of the local economy, many of these buildings are now obsolete and represent an obstacle to the area's revitalization. Those downtowns which are most successful have either developed a clever design solution to overcome physical limitations or have generated a level of economic demand high enough to outweigh those limitations. FUNCTIONAL As with the economic assets and deficiencies, evaluating the overall functional performance of the CBD results in mixed reviews. One of the assets of the downtown is that it has excellent access to Interstate 82 and, in turn, to outlying markets. This is important because a large share of the market area population lives outside of the City. Unfortunately, the impact of this entrance into the down- town is lessened by the run-down character of many of the buildings nearest the interstate interchange. Counterbalancing the external accessibility are some problems with circulation within the City of Yakima. To begin with, the "Central Business District" is not very central with respect to the BU(1 . WIll15 f RAIIIFF 53 CBD MARKET SHARE STUDY City of Yakima, Washington rest of the City. An almost exclusively westward pattern of growth has left the CBD significantly off -center and thus has lengthened average trip distances into the downtown. Secondly, the change in the orientation of the street grid (from parallel to the railroad tracks to east-west/north-south) has caused some discontinuities in the major street system. Streets which visually appear important within the downtown such as Walnut and Naches, dead end rather than continue on as major streets. Conversely, major streets outside the CBD such as Tieton, do not provide a continuous path into the CBD. These shortcomings are relatively minor, however, and access into the downtown from the western portion of Yakima is not especially diffi- cult; simply inconvenient. The problem with this deficiency is that it creates the opportunity for development of intervening shopping centers and office complexes which siphon off much of the traffic which would otherwise end up downtown. A second functional deficiency is the mismatch between available downtown parking spaces and current parking demand. Parking utiliza- tion is defined not only by the number of spaces, butalso by the location, cost and accessibility of those spaces. Judging by the responses from the public opinion surveys, existing parking is not meeting expectations although it is not clear precisely why. The 1,200 parking spaces in the Mall, for example, are largely unused. It seems likely that the preferred type of parking for most Yakima residents would be in a surface lot directly adjacent to their ultimate destination. It seems equally likely, however, that the widespread implementation of such a parking strategy would be difficult to justify economically and would, in any case, tend to change the character of the downtown by limiting its intensity and scale to that of a strip center or office park. u(14 WItl15 54 CBD MARKET SHARE STUDY City of Yakima, Washington A second asset which has the potential to lessen parking and access problems is the Yakima Transit System. It is somewhat unusual for a city the size of Yakima to have such a well developed bus system to begin with, but it is particularly advantageous to the downtown because it contains the hub for the whole route structure. Unfortunately, the responses from the origin/destination survey indicate that only a limited segment of the population actively uses the system. The final functional deficiency is the physical gulf between eastside and westside retailers. This separation is broad enough that it becomes conceptually difficult to think of them as both being part of the same whole, not to mention the practical difficulties of trying to convince shoppers to browse from one end to the other. The combination of First Street, the railroad tracks and the warehousing district create a barrier sufficient to deter most shoppers from shopping on both sides during the same trip. It is possible that the continued development of North Front Street, the renovation of the train station and the conversion of the warehouses to retail and office uses could bridge at least the conceptual gap. The physical distances, however, are still large enough to dissuade all but the most fanatical pedestrian from treating both sides as one continuous shopping mall. Thus it seems probable that this deficiency will necessitate a marketing and development strategy which creates separate but complementary sub -areas, each with a unique market orientation and land use mix. DESIGN The identification of design assets and deficiencies again focuses on the broader issues of design which affect the economic viability and marketability of the downtown as a whole rather than on RULER. WIUUS £ RAiUFF 55 CBD MARKET SHARE STUDY City of Yakirna, Washington specific design details. As would be expected, property owners and businessmen that have built or remodelled buildings downtown have not followed a consistent theme or architectural style. There are, however, some underlying design issues which affect the perception of the downtown and, in turn, its image in the minds of those who frequent the area for work, shopping or entertainment. That image is a crucial element in the success or failure of any marketing effort. One of the biggest assets the downtown has is the Yakima Mall. It integrates three major department, stores (a fourth, Nordstroms, is across the street) with dozens of smaller shops in one compact and efficient framework. It is quite possible that, absent the mall, much of the existing retailing would be located elsewhere. This does not mean that the mall is perfect. It has, in fact, a variety of design flaws. To begin with, the mall is very introverted in its physical relationship to other retailers in downtown. With the exception of The Bon, the stores all tend to be oriented toward the interior corridors and away from the street. This orientation, coupled with relatively weak entrances into the mall itself, makes it difficult_ for the drawing power of the mall to be shared by the rest of the downtown. A second design asset is the existing stock of older buildings with interesting architectural details and historical flavor. The Capitol Theatre and the buildings on Front Street are local examples of how restoration can be good for business. As a general rule, the restoration or adaptive reuse of an older building provides space with greater visual appeal at a lower or equivalent cost: than build- ings which have been "modernized". Although this strategy is not ideal for every building, it probably should be the first alternative examined for older buildings. This is particularly true for build- ings on either side of Yakima Avenue where visual amenities will have MR W11111 S E Rill[[ 56 CBD MARKET SHARE STUDY City of Yakima, Washington the greatest impact on visitors and where the existing buildings tend to have the greatest potential. As you move away from Yakima Avenue, the building stock generally becomes less remarkable and the reuse strategy less critical to the character of the downtown. Landscaping is another important visual element in the downtown, and one which has received considerable attention in the past. Taken individually, the landscape treatments are successful in relieving the otherwise dull and hard surfaces of downtown's exterior spaces. On a broader scale, however, there does not seem to be any underlying rationale which guides their location and design. For example, land- scaping could be used to define the sub -areas within the downtown, identify areas with high pedestrian traffic, or highlight major entrances into the CBD. Finally, the landscaping along Second Street appears to be a good idea in the wrong location. Although the "vest- pocket park" atmosphere is appealing, there is no compelling reason for pedestrians to frequent Second Street since it does not lead to any pedestrian traffic generators. As a result, usage is too low for the area to be self -policed or to discourage vandalism. A closely related deficiency is the absence of public gathering places. One of the easiest ways to increase the visibility and vitality of the downtown is to hold a regular series of public events such as exhibitions, carnivals and concerts. Currently, there is no adequate place for such an event to occur. The mall attempts to accommodate such activities, but its structural limitations preclude the type of plaza space which would be ideal. SUMMARY On balance, downtown Yakima provides a reasonably good shopping environment. Although its potential has not been maximized, it has BU(NIR WItL]S } RAIUII 57 CBD MARKET SHARE STUDY City of Yakima, Washington more assets than deficiencies and more community support than many downtowns elsewhere. Most importantly, the assets of the Yakima. CBD include the necessary ingredients for a strong economic foundation while the deficiencies tend to be physical in nature. Making physical improve- ments is relatively easy compared with rebuilding a failing economic structure. Still, it is.crucial that downtown businessmen not become complacent. The potential for further growth could easily be lost unless improvements are made to remedy existing problems and to more fully take advantage of existing opportunities. BI�N� WILUS f RAIUFF 58 CBD MARKET SHARE STUDY City of Yakima, Washington CHAPTER 6 DEVELOPMENT STRATEGIES The purpose of this chapter is to provide three alternative strategies for the future growth and development of downtown Yakima. While the data in the preceding chapters has defined a variety of constraints and opportunities, the possible range of actions which could be taken is great. In order to organize alternative actions within some kind of rational framework, three development scenarios have been provided which represent three levels of effort and poten- tial economic growth. For each scenario, strategies are suggested for economic growth, functional improvements, and design enhancement which are consistent with the overall scenario. These strategies vary, to some degree, by geographic sub -area. It is important to point out that not meant to be mutually exclusive. growth Levels 2 and 3 include many, described for. Levels 1 and 2. the three growth scenarios are In fact, it is assumed that if not all, of the actions It is also possible that different sub -areas within the downtown may end arios, depending upon their particular achieve growth. Level 1: Maintain Market Share up following different scen- needs, resources, and desire to Between the 1980-81 and 1984-85 retail shopping years, retailers in the City of Yakima lost 3% of their market share. Further, the 1967 CBD study estimated that the retail market (hardware, general merchandise, food, apparel, furniture, and miscellaneous retail) in Yakima County would expand to $487,517,000, after adjusted for infla- tion and the City would capture 63% of those sales. Neither case RRIg Wlll►S ;til fT 59 CBD MARKET SHARE STUDY City of Yakima, Washington occurred. Retail sales in those categories increased to approximately $357,750,000, with the City capturing 56% of those sales and the CBD, 29% ($200,354,000 and $103,529,000, respectively). The emphasis of this scenario is on maintaining the status quo, and preventing further losses of the present market share. The CBD is already the dominant commercial center in Yakima County, but needs to prevent further erosion of its present market share. Consequently, this scenario does not call for a large influx of new businesses but, rather, a strategy for improving the performance of existing businesses through better marketing, improved image and greater cooperation between businesses. The Level 1 downplays the need for both major capital improve- ments from the public sector and major capital investments from the private sector. The improvements that are recommended are primarily low-cost projects aimed at improving the collective purpose and func- tion of the downtown. Level 2: The CBD as a Focal Point In order to reach the next level of business performance, the CBD must not only be the largest commercial area in Yakima County, but should project an image as the focal point for activities (retail and non -retail) throughout the Yakima Valley, as well. In particular, the downtown should capitalize on the current lack of focus within the region for tourism and entertainment uses. It should also strengthen its service and financial sectors, and improve interaction within the retail sector. Achieving these objectives will require the recruit- ment of selected businesses, but retail expansion should be only moderate and stay well within the estimates of market potential. Bll(NFR WIIIJS $ RAIIIFF 60 CBD MARKET SHARE STUDY City of Yakima, Washington Recommended physical improvements in Level 2 will be more numer- ous than in the Level 1 scenario, but will stay within reasonable limits. The emphasis, in addition to improving the functioning of the CBD, will be on providing those facilities necessary to accommodate "focal point" activities. Some improvements will be aimed at making the downtown a more enjoyable place in which to be, while others will be aimed at providing a setting for non -retail events and operations designed to link the downtown with the rest of the community and region. Level 3: Major Business Expansion The final scenario assumes that there will be one or more major retail, office or hotel projects built in the downtown by the private sector. Examples might include the addition of a major department store (or the relocation of an existing department store) as a fifth anchor, the development of a major office complex or corporate head- quarters, and/or the construction of a luxury hotel. Although such projects are too unusual to be predicted, the, do occur and are pos- sible in downtown Yakima. The emphasis of this scenario will be on integrating a major expansion into the existing fabric of the downtown in a way which maximizes the positive benefits to both new and exist- ing businesses. This expansion will be the catalyst and justification for a number of major improvement projects designed to accommodate the attendant increases in both cars and people, as well as to enhance the connections between new and existing facilities and structures. It is assumed that the scale of improvements will necessitate substantial capital investment on the part of both public and private sectors. B�cN�. w��uS f �IUFE 61 CBD MARKET SHARE STUDY City of Yakima, Washington ECONOMIC STRATEGIES Level 1: Maintain Market Share Although the goal of this scenario is the maintenance of the existing market share, it is certainly not the case that this implies "no action". Businesses (and business districts) that become com- placent about past success and stop looking for ways to improve are doomed to be overtaken by their competitors. Thus, this scenario will necessitate a variety of actions or improvements just to maintain the status quo. First, it is recommended that the downtown businessmen work on refining the image their customers have of their business and the downtown in general. The Yakima CBD is so large and contains such a diversity of businesses that it is highly probable that most people have a mental map of the downtown which includes only the largest businesses or those that they visit most frequently. Each business that is not on the mental map of each potential customer has an image or perceptual marketing problem. One way to address this problem is through advertising and spe- cial promotions. Businesses that advertise regularly and effectively are likely to present the clearest image in the minds of their customers. While it is recommended that each business periodically re-evaluate its advertising strategy, a massive advertising budget is not the most cost-efficient way to increase profits for most busi- nesses. In addition, if every store instituted their own advertising blitz, consumers would be so inundated with information that each store's image probably would improve only marginally. BtiU4 . WILDS ZAIUIL 62 CBD MARKET SHARE STUDY City of Yakima, Washington Instead, it is recommended that joint advertising campaigns be developed to define an image for groups of stores which sell similar products or which are located in a clearly defined area. The Yakima Mall, for example, has done a good job of establishing its image through joint advertising and promotions. It is likely that when most people in Yakima decide to go shopping for clothes, they think of the Mall as one of their primary shopping options. Every store in the Mall benefits from that image, even if each customer does not specifi- cally remember every store. Although the Mall is somewhat unique in that it has a formal organizational structure, there is no reason why a group of independent businesses cannot coordinate advertising and promotions in the same way. At the very least, every ad by every business ought to include "Located in Downtown Yakima", or some simi- lar reference so that the idea of the downtown as a shopping center, rather than a collection of individual stores, is constantly being reinforced. It would be preferable, in fact, for businessmen to also identify sub -areas within the downtown, much the way the merchants of North Front Street have done. This presents the consumer with an even easier way to keep track of various businesses. Second, it is recommended that businesses within the downtown consider voluntarily relocating in order to form mutually reinforcing clusters of commercial activity. Again, the Yakima Mall is a good example. Each store in the Mall benefits from the retail intensity created by having a large number of stores with similar markets within close proximity to each other. Although the physical structure of a mall is not appropriate for every business, the benefits of proximity do apply to nearly every type of commercial activity. Obviously, the process of business relocation is slow and compli- cated. But, relocation is not impossible and the benefits are worth the effort in the long run. What is required is cooperative effort BU(NFk WIFUS f RAIUFF 63 CBD MARKET SHARE STUDY City of Yakima, Washington and planning between businesses, some imagination, and entrepreneurial spirit. The latter commodity seems to be plentiful among downtown businessmen. Cooperative effort, on the other hand, :Ls the tradi- tional nemesis of downtown revitalization projects, because downtown businessmen typically treasure their independence. This attitude must be overcome, because cooperative effort is the key not only to the Level 1 strategy, but to the other strategies as well. This strategy requires a strong organizational structure, because the actions which must be taken are not one-time or short-term in nature but, rather, long-term and on-going. Due to the. diversity of businesses in the downtown, it is recommended that the organizational structure be oriented toward sub -areas, rather than the downtown as a whole. A broader downtown group, perhaps composed of one member from each sub- area, is still a good idea, but its responsibilities should be limited mainly to tasks requiring coordination between groups. Although Chapter 2 defined some broad sub -areas within the down- town, it seems likely that more narrowly drawn sub -areas will be better suited to the purposes of this strategy. The most obvious possibilities include a home furnishings/home improvements group along West Yakima, a neighborhood shopping center group along North Fifth Avenue, and a specialty goods/historic district along North Front Street. Another less obvious possibility, and perhaps less justified given income limits, is a high-quality/high-fashion emphasis near the Second Street -Yakima Avenue intersection. These businesses might benefit from an image separate from the mass merchandising orientation of the Mall. This also raises the possibility of developing the vacant corner of Second and Yakima as a series of small retailers with a luxury -goods market. 9111.11.11S 64 CBD MARKET SHARE STUDY City of Yakima, Washington Level 2: The CBD as a Focal Point One of the characteristics that distinguishes many of the most successful downtowns is that they generate an atmosphere of fun and excitement sufficient to draw people into the downtown who otherwise would go elsewhere. Retailers often overlook the fact that many people view shopping as a form of entertainment, and want some fun along with their merchandise. A second characteristic of successful downtowns is that they contain businesses and activities which involve the entire commun- ity and region. Many of these activities have little or no direct commercial value. However, simply bringing people into the downtown can generate indirect benefits which pay off in terms of long-term profits. An.art fair or a farmers' market, for example, might have a relatively minor direct impact on retail sales. But such an event accomplishes two things which pay long-term dividends. First, it creates some excitement because it offers an opportunity to do some- thing outside the normal routine. Second, it attracts people into the downtown, either as sponsors or participants, who might otherwise have little interest in or contact with the downtown area. As a result, people develop a more positive image of the CBD, they become more familiar with the goods and services available, and they become more comfortable with traffic patterns and parking arrangements. Most importantly, people develop a sense of civic pride toward the downtown and, thus, are more likely to patronize downtown businesses and sup- port improvement projects. In short, the focus of the Level 2 scenario is on making the CBD the focal point for a broad variety of activities and events which go beyond the scope of the retailing, finance and service businesses cur- rently in the downtown. In accomplishing this goal, it is important that the downtown take advantage of its built-in assets: BU(N[R. w.Ys t ?AiliFE 65 CBD MARKET SHARE STUDY City of Yakima, Washington INOMMINXIMMIP 1. The Capitrol Theater is a unique building, with a regular schedule of events that draw audiences from the entire region; 2. The Convention Center has a regular schedule of regional and state-wide conventions and trade shows; 3. The Central Washington State Fairgrounds, south of the down- town, hosts a variety of events ranging from. agricultural exhibits to racing, and is in the process of financing an exhibition center; 4. The motel space in and around the downtown is among the best in the Yakima region; 5. City, County and Federal offices are all headquartered with- in the downtown; and 6. Nearly all of the major financial institutions have their main office in the downtown. This list of assets suggests at least three markets which deserve further attention by downtown businessmen. First is the tourism market. The Yakima Valley does not contain a dominant tourist attraction capable of drawing tourists for an extended stay. Instead, there are numerous small attractions which have a major tourism impact, only when viewed collectively. Developing an organi- zational framework to tie together these various attractions is the focus of current tourism efforts. What is still lacking is a hub for tourism activities which contains appropriate support services and retailing. It is recommended that the CBD serve as the site for such a tourism/cultural center containing information, displays, offices and retail goods related to local history, products, culture and entertainment attractions. It is also recommended that additional gift shops, restaurants and night clubs be developed downtown to cater to the tourism market. A second market, and one closely related to the first, is the convention business. Again, additional support services such as B_(NR. WIlt1S + R�iIIFE 66 CBD MARKET SHARE STUDY City of Yakima, Washington restaurants and nightclubs should be considered in the downtown. It is also likely that people attending a convention (or their spouses) will want to shop and/or visit local tourist attractions during their free time. A specific marketing package should be distributed to every person attending a local convention or trade show to make certain they are aware of the opportunities available in the down- town. Particular emphasis should be placed on designing promotions for those businesses most likely to be of interest to conventioneers. A home show, for example, presents an ideal market for many of the home furnishing/home improvement businesses in the westside. The third market is the pool of downtown office workers. It is recommended that downtown businesspeople design promotional events and activities specifically aimed at this market. The goal of these efforts should be to draw office workers into the retail core areas, increase retail sales during the lunch hour and immediately after work, and improve their perception of the downtown in general. Pos- sible activities include: 1. A lunch-time concert series featuring local musicians; 2. Regular sales events which run from 12:00 to 1:00 p.m.; and/or 3. Brown -bag investment (or real estate, health care, home fix -up, etc.) seminars sponsored by local banks, brokerage firms, and savings and loan firms. There are dozens of possibilities, each of which can further tap the potential office market. Equally important, improving the down- town worker's perception and knowledge of the area turns the work force into "ambassadors" for the downtown. Finally, the downtown needs to tap additional local markets other than the obvious ones described above. A regular schedule of 13JU1 WIlU5 k g{F 67 CBD MARKET SHARE STUDY City of Yakima, Washington special events should be developed which involves as many different interest groups in the Valley as possible. To the degree feasible, these events should be designed to showcase regional products, tal- ents and history, attracting as many local sponsors, performers, spectators and other participants as possible; and add color, vital- ity and excitement to the normal downtown routine. Examples include: 1. An art or crafts fair featuring artists or craftsmen from across the State, as well as from the Yakima Valley; 2. Parades featuring local high school bands on Thanksgiving, St. Patrick's Day, and/or the 4th of July; 3. Wine tasting competition in conjunction with the grape harvest; 4. Displays of antique cars, furniture or agricultural implements; and 5. Health fairs sponsored by area hospitals. The range of possible events is nearly limitless, but it is important that every event be well organized, coordinated with exist- ing interest groups or similar events elsewhere in the community, and widely publicized. In return for establishing the downtown as the focal point for the region, it is actually increase market increased market share anticipated that the downtown area could share to some degree. Although some of this would be absorbed by existing businesses, a modest expansion in net retail floor area of 75,000 - 100,000 square feet would be expected over the next ten years. increased floor area is likely to be serving specialty the apparel and accessories, eating and drinking, retail categories. As a result, the shop sizes and are relatively small, and the new space will probably be Most of this businesses in miscellaneous likely to be located in a series of small projects developed by local entrepreneurs. BU(N�R WI«IS t Rh1UFF 68 CBD MARKET SHARE STUDY City of Yakima, Washington Level 3: Major Business Expansion The key assumption of this scenario is that there will be some major economic stimulus which will shape future development in the downtown. Although such an event is not predictable, it is certainly within the realm of possibility and, as a result, is worth considera- tion. One possibility is that another major department store (such as Sears or Wards) decide to relocate or expand into the downtown area. Assuming that it could be appropriately integrated into the physical fabric of the downtown, a major retail expansion of this kind would cause a significant increase in CBD market share. This would improve the performance of existing stores by increasing comparison shopping, as well as attracting additional specialty retailing into the CBD. Altogether, this scenario could result in 150,000 - 250,000 square feet of new retail space in the Yakima CBD. Another possibility is that a major office or hotel project take place within the CBD. Although neither of these markets are presently strong in the Yakima area, unforeseen events could easily change current predictions. The successful development of an Exhi- bition Center at the Fairgrounds, for example, could increase motel occupancy rates sufficiently to justify additional room capacity. In any case, the degree of impact on the downtown would depend on the location and nature of the project. A motel located at the inter- state interchange or a medical office complex near the hospital would have fewer secondary benefits than a high-rise hotel or office at Third Street and Yakima. A centralized location would almost neces- sitate a high-end or luxury orientation and could be integrated with retailing to form a mixed use project. A hotel project could also include the functions of the tourism/cultural center discussed in the Level 2 scenario. The resulting expansion of the downtown economy could lead to anywhere from 50,000 - 150,000 square feet of new retail/service uses, depending upon location and market orientation. BU(NE WILDS RA urr 69 CBD MARKET SHARE STUDY City of Yakima, Washington A probable side-effect of any large-scale project is the forced relocation of existing businesses. This could happen not only at the site of the project itself, but also in the surrounding area. If the estimated amount of secondary business expansion is correct, then rent levels near the project are likely to increase to the point where existing businesses may not be inclined to stay. Although this process is invariably a painful one, the final result should be bene- ficial for the downtown, as a whole. It may be desirable to provide technical assistance for businesses which must relocate (locational suggestions, space analysis and promotional ideas) in order to mini- mize any ill feelings and maximize each store's potential for success at their new location, particularly if relocations can be encouraged within the CBD study area. FUNCTIONAL STRATEGIES This section deals primarily with the issues of vehicular move- ment, parking and pedestrian movement. It is anticipated that the changes included here, described in detail by the traffic and parking studies completed by the TRANSPO Group, will reinforce and improve the effectiveness of the economic strategies discussed above. Level 1: Maintain Market Share As a result of the relatively low level of new activity forecast for the Level 1 scenario, the functional strategies at this level are aimed at resolving existing problems rather than addressing problems which might be created by future development. In addiction, capital expenditures have been kept to a minimum and, thus, there are no large-scale improvement projects proposed. Ru(Rwf S f z�lu�T 70 CBD MARKET SHARE STUDY City of Yakima, Washington Relatively few modifications to the current vehicular traffic patterns are warranted by the level of activity and investment anti- cipated by this scenario. A few changes are recommended, however, to facilitate smoother traffic flow. To begin with, it is crucial that Yakima Avenue remain a major traffic carrier through the downtown because of the importance of visibility to most retail and service uses. To lessen the level of frustration experienced by motorists on Yakima Avenue, it is recommended that the traffic signals be syn- chronized, and that its current four lane width be retained. Although Yakima Avenue should remain a major street, the Lincoln/B Street bypass is a valuable way to relieve unnecessary congestion in the retail core. It is recommended that alternatives to enhance the performance of this bypass be examined, including the establishment of a one-way pair at 8th and 9th Streets. Given current demand and utilization rates, the parking problems so frequently pointed out in the consumer surveys are more a matter of perception and mis-utilization than a matter of insufficient spaces. In particular, it appears as though better utilization of the Mall parking garage is one step which would dramatically improve parking throughout the east side of the CBD. The current under - utilization appears to stem from consumer resistance to the cost of Mall parking and its perceived inconvenience relative to entry and exit. Assuming that physical changes other than upgrading circula- tion signage would be prohibitively expensive for a Level 1 scenario, improving utilization becomes an issue of changing public opinion. It is recommended that Mall management consider ads and promotions designed to overcome misconceptions about safety and convenience. This ad campaign should be supplemented by special promotional events which offer free or discounted parking during certain time periods in order to entice shoppers into altering their usual parking habits and BU(NER. WILTS 71 CBD MARKET SHARE STUDY City of Yakima, Washington trying the Mall garage. It is quite possible that the more familiar people become with the Mall parking, the more they will use it, despite perceived limitations. It is also recommended that the Mall management consider restructuring the parking rates for the Mall garage, although it is important that it remain profitable. A strategy of reducing the charge per car, but increasing the number of cars would ease parking problems without affecting profits. This effort shouldinclude both short-term customer parking and long-term employee parking. It may also be beneficial to shift the cost of parking from the customer to the retailer by reducing or eliminating parking charges for the first hour or two, and splitting the lost revenue among Mall merchants. The current parking validation program is one way to accomplish this shift, but it is implemented by too few stores at present to make it effective and, consequently, discourages validation. If validation is to be continued, it should be mandatory for all Mall merchants to participate, expanded to surrounding stores, and stressed in Mall advertising. To the degree the Mall management shares in increased retail profits, it may be desirable for the cost of the validation program to be split, rather than carried exclusively by the merchants. Pedestrian activity under this scenario remains focused on the existing sidewalk system. For the sake of traffic flow and pedes- trian safety, it is recommended that pedestrian crossings be limited to block corners and that mid -block crossings be eventually removed as a safety and traffic flow hazard. Level 2: The CBD as a Focal Point The functional strategies for this level are largely con- tinuations of the Level 1 strategies. The bypass loop remains BJ(N�R WIIUS 72 CBD MARKET SHARE STUDY City of Yakima, Washington unchanged except that improvements to intersection geometrics to facilitate turning movements would be desirable. Vehicular circula- tion within the downtown remains focused on Yakima Avenue, but strong consideration should be given to improving mass transit service. Keeping in mind that part of the emphasis of Level 2 is on improving linkages between various segments of the CBD economy, a downtown shuttle bus would be an excellent way to link motels, the Convention Center, the Capitol Theatre, Front Street, City Hall and County Courthouse with existing retail and service businesses. Special shuttle bus routes could be established in response to special events elsewhere in the downtown or the community. Westside merchants, for example, should be included in the route during the annual Home and Energy Show so that those merchants oriented toward home improvements and furnishings can take better advantage of the interest generated by the show. Similarly, the route should be extended to the fair- grounds whenever major events are being held at that location. The result would be added convenience for visitors and shoppers, and greater exposure for the downtown business community. It may also be possible to tie the shuttle bus concept into a broader tourism effort. One idea which has been proposed is to use the Yakima train depot as a starting point for a tour of the winer- ies, orchards, museums and historical sites in the lower valley. Much of the trip would be via train, with side trips by bus, where appropriate. The downtown shuttle is a logical extension of this idea because it allows tourists to leave their car at the motel and familiarizes them with the attractions of downtown Yakima. It is recommended that the City's transportation staff study possible route alignments and equipment needs, and estimate the cost of such a shuttle bus system. BU(Nk WIII]S + �AFUFF 73 CBD MARKET SHARE STUDY City of Yakima, Washington Level 2 parking strategies make use of the shuttle bus, as well. One of the existing parking problems is the limited avail- ability of long-term parking for employees. Employees currently choose between finding on -street parking in the fringe areas around the downtown and walking several blocks to work, or parking in short-term spaces closer in. The first option is inconvenient, particularly during inclement weather, and perceived to be somewhat unsafe in the evening. _The second option decreases the number of parking spaces available for shoppers, and forces employees to move their cars periodically, to avoid parking tickets. Although provid- ing additional spaces at "close in" locations may be prohibitively expensive for this scenario, it may, alternatively, be possible to acquire and construct off-street parking lots at outlying locations at a more reasonable cost. If so, the shuttle bus route could be designed to serve downtown employees going between these long-term parking areas and their work place, as well as tourists going between the motels and the various tourist attractions. Greater use of the Visitors and Convention Bureau lot, for example, may be a short-term solution. The second part of the parking recommendations concerns new development in the downtown area. Although the existing parking supply is adequate for existing demand, if modifications are made, this rough balance could be destroyed if additional retail or office space is constructed without adding additional parking. It is recommended that as a part of the Level 2 scenario the City revise its parking requirements for new development in the CBD. The econo- mic limitations on downtown development are such, however, that the traditional application of on-site parking requirements for each use may be unnecessarily restrictive. Instead, it is suggested the City develop flexible parking requirements that take into account avail- able on -street parking (adjusted to reflect current utilization), Rt oR WIL11(S f ?MUFF 74 CBD MARKET SHARE STUDY City of Yakima, Washington a shared parking with other uses, and contributions to off-site public parking lots. However, whatever the parking solution proposed, it should be kept in mind the Yakima consumer prefers close -in, conven- ient parking and, in fact, resists walking any distance between a parking space and the shopping experience. Pedestrian circulation patterns in this scenario remain focused on the existing sidewalk system as in Level 1. It is recommended, however, that added emphasis be placed on identifying those pedes- trian crossings which are the busiest, and the least safe. Improve- ments to these crossings are recommended to increase actual safety, as well as perceived safety. It may be desirable, for example, to extend the sidewalk into the parking area at crosswalks to make the pedestrian more visible to vehicular traffic and to reduce the width of the street which pedestrians must cross. In addition to pedes- trian safety, it is further recommended that consideration be given to improvements to pedestrian comfort and convenience. Sidewalk repair, benches, landscaping, awnings, display windows, and pedes- trian level street lighting are all things which can make being a pedestrian a more enjoyable experience. Level 3: Major Business Expansion The increase in activity assumed by the Level 3 scenario is suf- ficient to warrant a significantly different approach to functional problems, particularly with respect to parking and pedestrian circu- lation. Vehicular circulation will still depend primarily on the bypass loop and Yakima Avenue, simply because there are few alter- natives. It may be possible to improve the flow of traffic on the bypass by purchasing additional rights-of-way at each corner of the loop to allow a horizontal curve of greater radius. Traffic capacity and safety could be further improved if an alternative entrance for truck traffic could be found for Boise -Cascade. BU(ll k WILDS f RAJA[[ 75 CBD MARKET SHARE STUDY City of Yakima, Washington Parking demand under this scenario is likely to jump dramati- cally to a point far in excess of current parking supply. This is particularly problematic, if the increase in activity takes place near the Mall, since it is already the location of the greatest parking problems. An increase in retail space of 150,000 square feet, for example, would require an additional 600 dedicated spaces, or 450 shared spaces. To add this number of parking spaces near the Mall would probably require either one large parking structure or the addition of a second deck to existing public parking lots. In either case, it would be an expensive improvement. If the downtown expan- sion took place elsewhere, it might be economically feasible to raze existing buildings, to provide the surface parking that Yakima resi- dents seem to prefer. Depending upon future utilization of the Mall parking garage, it might be possible to use some of the spaces in that structure to satisfy parking demand generated by new development. For this to be a viable solution, however, it would be necessary for there to be a reasonably direct connection between the new development and the Mall garage. This suggests the construction of a skywalk system or the closing of another street so that there can be an expansion of the Mall itself. Closing another street would have a negative impact on traffic circulation and, thus, is not the preferred option. The establishment of a system of skywalks would create a second level for pedestrian circulation completely separate from vehicular traffic. This has obvious advantages in terms of pedestrian safety and convenience. It does not appear desirable or feasible, however, to remove all pedestrian traffic from the sidewalk. system. Thus, if skywalks are constructed, it would mean a two-tier pedestrian cir- culation pattern. That, in turn, implies the need for a vertical connection between the two levels in the form of escalators, eleva- tors or stairways. In most situations, escalators would be the gucii� w«JJS 76 CBD MARKET SHARE STUDY City of Yakima, Washington preferred solution because they provide continuous movement, a better visual link, and improved marketing possibilities. The specific location of any skywalk system is, of course, dependent upon the location and design of the new development which is at the heart of this scenario. The Mall itself, however, is limited in how it can connect into the system by the street level configuration of most of its structures. The west end of the Mall seems to be the most conducive place for a second story connection, and it would offer the option of going either west across Third Street or south across Yakima Avenue. The extensiveness of the skywalk system depends more on financial limitations, rather than physical ones. It is conceivable that the system could run as far east as Nordstrom's and Chinook Tower, and as far west as First and Yakima. It does not appear likely that there would be any justifi- cation for going more than a block north or south of Yakima, or for establishing a skywalk system in other areas of the CBD. DESIGN STRATEGIES It is sometimes difficult to convince downtown businesspeople to pay much attention to design issues, because their impact on sales is hard to measure or predict. Conversely, retail marketing research indicates stores should be remodeled on a three-year basis to both stay with trends and improve the shopping experience. Recent exper- ience in Department Stores has confirmed that remodeling typically results in a double-digit improvement in sales. Despite a resistance to being quantified, the visual characteristics of a commercial district are key elements in defining an area's image and establish- ing its appeal to shoppers -- qualities which are crucial to the future expansion of downtown Yakima. The recommendations included here, and described in greater detail in the design studies prepared RU* WILLIS RAiI lT 0 77 CBD MARKET SHARE STUDY City of Yakima, Washington by the Kasprison Design Group, are intended to supplement and amplify the economic and functional strategies discussed above. Level 1: Maintain Market Share Due to the low capital cost emphasis of this scenario, the design strategy is necessarily limited. The focus should be on establishing a pattern of visual cues sufficient to create an image of the downtown as a single shopping center, rather than just a random accumulation of businesses. , The most common techniques for accomplishing this are special landscaping, light fixtures and/or banners. Yakima Avenue is the street which should receive top priority because it is the "front door" through which most people enter the downtown area, particularly visitors. It is also recom- mended that landscaping be located primarily at the corners of each block in order to reinforce the corner crosswalk scheme for pedestrian circulation. One of the assets of the downtown is the existing stock of older buildings, many of which have a unique character. Building owners should be encouraged to take advantage of that character by under- taking facade renovations which highlight the building's original design, rather than covering it up with a new material. Where appro- priate, color and visual interest should be added through the use of awnings and creative signage. However, owners should not be penalized through the tax assessment process for making these improvements. Finally, it is recommended that entrances to the Mall be rede- signed so they appear more attractive and inviting, and so they relate visually and functionally to the rest of the downtown. The entrance at Yakima and Third is particularly important in this BU(N11. 78 CBD MARKET SHARE STUDY City of Yakima, Washington regard. Presently, the Mall is far too introspective at this location, with windows and an improved entrance treatment important to enhancing the overall marketability of the retail activities within. Level 2: The CBD as a Focal Point If this scenario is_to be successful, there will need to be some major design changes to the CBD. To begin with, the idea of a tour- ism/cultural center to serve as a hub for regional activities will require a facility that is appropriately located and designed for that purpose. This facility is not envisaged as competition to pre- sent and planned facilities but, rather, complementary -- including, for example, offices for area associations on an upper level and displays and shops selling local goods on a lower level. This could be accomplished through the renovation of an existing building or the construction of a new building. In either case, it will be necessary for the location to be highly visible, readily accessible and easily connected to other activities. This type of improvement also serves as a "statement" about Yakima; not only the CBD, but the City and County as a whole. One potential and highly attractive location for a tourism/cul- tural facility would be the currently vacant block between Second and Third Streets north of Yakima Avenue. This site is terms of visibility and the eastside retailers. accessibility, and could help Another of Third and Yakima (currently excellent in tie together possibility is the southeast corner the location of the liquor store, sporting goods store and the vacant commercial building). Although not as large, this site offers the possibility of renovation rather than new construction, and has closer ties to the Capitol Theater. Finally, if a location with a stronger historical emphasis is BUM.. wi S 79 CBD MARKET SHARE STUDY City of Yakima, Washington desired, the southeast corner of East "A" and North Front Street would be a workable site. This location has less visibility and weaker ties to the retail community, but this might: be offset by lower development costs and the potential redevelopment of the train depot as the starting point for a tourist train through the Yakima Valley. A second issue which needs to be resolved is a location for special events. Although it is possible to create such a space by temporarily closing a street or an off-street parking lot, it is preferable for at least part of the space to be permanently open so that small events such as a lunch hour concert can be held without disrupting the rest of the downtown. Ideally, this plaza space would be developed in conjunction with the tourism/cultural center to maximize its utility and to make use of public facilities such as restrooms and kitchens which the center might contain. In order to avoid a dead space whenever the plaza is not in use, it might be possible to develop a "sidewalk cafe" function for the plaza by selling franchises to private vendors. Although the Level 2 economic scenario predicts some business expansion, there is not likely to be a major construction boom. Con- sequently, the adaptive re -use of existing buildings will be an important design issue. Buildings which are currently vacant or underutilized should be creatively evaluated to determine their structural and functional assets and limitations, and their adapta- bility to other uses. The vacant produce warehouses, for example, should be redeveloped rather than allowed to stand empty. It might be possible to convert them to parking garages or even condominiums. Landscaping should follow the guidelines described in the Level 1 strategy, but should be applied to streets beyond Yakima NU(NEk. WIUUS f gIIEF 80 CBD MARKET SHARE STUDY City of Yakima, Washington Avenue. One option would be to develop a series of cross axes such as First, Third and Sixth Streets and Third and Fifth Avenues. Landscaping should also be used to highlight special activity areas and facilities such as the proposed plaza, and to create gateways into the downtown at major entrance points. The entrance on Yakima Avenue from the Interstate especially deserves to be visually enhanced. Finally, it would be desirable to develop special treatments for the sub -area groupings encouraged by,this scenario. Special sidewalk paving, light fixtures or signage are a few possible techniques to subtly reinforce the area's image as a specialty center within the broader downtown. Level 3: Major Business Expansion The third scenario envisions a considerable amount of new construction and it is important that these new buildings improve the visual and functional characteristics of the downtown rather than detract from them. It is assumed in this scenario that there will be at least one major retail, office or hotel project which will provide the impetus for a substantial economic expansion in the CBD. What- ever form this major project takes, it must not be isolated visually or functionally if the spin-off effects are to be maximized. This is particularly true if the project is located in an area dominated by retailing. In this situation, it is recommended that the following criteria be applied: 1. The street level should be developed with a pedestrian oriented activity, preferably retail. This implies that an office or hotel project should be encouraged to be a mixed- use development, rather than just an office or a hotel; 2. The building facades should be designed to provide as much visual interest to passing pedestrians and motorists as BU(NIR WlLI]S f RAItJ[I 81 CBD MARKET SHARE STUDY City of Yakima, Washington possible, preferably by allowing a glimpse of activities inside. The blank exterior walls often favored by large department stores should be avoided at all cost; and 3. The pedestrian paths from parking areas to new projects and to surrounding uses should be carefully designed to encour— age pedestrians to move from place to place, rather than stay within one structure. If skywalks are utilized, they should be largely transparent so their function can be readily understood and any sense of isolation between the sidewalk and skywalk levels can be minimized. It is also important that the use of skywalks not destroy the visual quality of the historic buildings downtown, or dominate the streetscape. Finally, it is recommended that both the north and south sides of the Yakima Avenue interchange with Interstate 82 be completely redeveloped to serve as a major gateway into the downtown. This redevelopment could be primarily aesthetic in nature such as a park or an extension of the Yakima Greenway, or more commercial in nature with improvements relating to the present convention/tourist fabric of the area. In any case, the visual quality of this project should be carefully controlled so that it enhances the entry sequence into the Yakima CBD. 11Xil[ . WI LIS f EJFF 82 CBD MARKET SHARE STUDY City of Yakima, Washington CHAPTER 7 IMPLEMENTATION For years the decentralization of commercial activities, from downtowns to both suburban malls and strip shopping centers, has resulted in a loss of market share for central business districts. This erosion within the primary market area and commensurate migra- tion of buying power has affected the Yakima CBD as it has downtowns throughout the country. Between 1981 and 1985, for example, the City of Yakima lost 3% of its market share or nearly $18 million in sales (exclusive of leakage). However, while many cities continue to struggle with the prob- lems of declining downtown economies, a sense of optimism is justified. A turnaround in the decline of retail activity has to be effected in many cities, large and small, stimulated by: • A growth in CBD service/office workers; • An increasing appreciation for an urban lifestyle; • An increasing cost of developing alternative shopping places; • Aggressive public sector leadership; and • Increased downtown organization. Many of these factors are beginning to play a role in Yakima and if both sustained and encouraged, can help bring about a reversal in the decline of the City's retail market share. BU(NIR WILUS f RAIIII 83 CBD MARKET SHARE STUDY City of Yakima, Washington ORGANIZATION maINIEMINIMP While many changes are occurring in Downtown Yakima, establish- ing a single, focused retail management system may be the only way the Central Business District will be able to organize and compete successfully for its share of the market. This is not to say that existing organizations should be abandoned, they should not. In fact, further delineation of and representation by each subarea identified in Chapter 2 is recommended. Rather, an overriding organization should be established to implement common goals through joint efforts. A single management group, sponsored by both property owners and retailers, can create the organizational and financial arrangements necessary to implement change change necessary for an improved market share position. Consequently, before successful implementa- tion can occur, a Yakima CBD organization should, conceivably must, be put in place. Presently the Yakima "Central Business District" includes a broad geographic area (see Chapter 2) and many diverse groups, including, but not limited to: • The Westside Merchants Association; • The North Front Street Improvement Association; • The Yakima Mall Association; and • The Downtown Area Redevelopment Commission. The first formal recommendation of the implementation plan, then, is to establish an "umbrella" organization responsible for central business district management and marketing. BU(IIFk WILDS + RAIUFF 84 CBD MARKET SHARE STUDY City of Yakima, Washington Organizational Format Downtown organizations take a variety of forms including non- profit associations, property owner associations, profit associations, and limited joint partnerships. It is conceivable that Yakima's organization may implement two of the above forms. For example, a non-profit management and marketing organization and limited joint partnership for property development. The management organization shquld establish a board of direc- tors which has, at least, the following minimum characteristics: • Includes representatives of each existing business organiza- tion now functioning; • Includes representatives, in an advisory capacity, from the City of Yakima (police, fire, community development); and • Includes both property owners and business managers. Secondly, organization, in whatever form it takes, should employ a full-time professional to implement the Board's plan and policies. The concern here, of course, becomes whether or not to place this person within the overhead structure of an existing organization or to establish an independent office. In large communities, with well -funded programs, the trend is toward independent offices. In smaller cities, where fund raising for multiple organizations "taps" the same businesses over and over, the ioantown management staff is often placed within the Chamber of Commerce or City. Certainly, the former is more effective because of the lack of distractions; but the latter may be more practical. The newly formed organization should make this decision. ?um. wIRJS }pIUFF 85 CBD MARKET SHARE STUDY City of Yakima, Washington Figure 7.1 sets out an organizational framework for a proposed Yakima Downtown umbrella organization. Identified within the figure are "satellite" organizations which should be included as voting and non-voting (in the case of the City and Chamber) members of the Yakima Downtown Council (for lack of another name). RESPONSIBILITIES Within the organizational structure set out in Figure 7.1, a committee structure is also identified which delineates areas of responsibility. The five committees and one subsidiary organization are each discussed below. Public Liaison Committee Cooperation between the Yakima Downtown Council and the City of Yakima is crucial to the implementation process. And, as with almost any cooperative effort, communication is the key to cooperation. Yakima's elected officials should be kept current on projects, goals, plans, and results -- an effort which should build support with the Governing Body and avoid surprises. With representatives of the City on the Board, the excellent cooperative effort already underway will be maintained, with the important process of communication formalized. This Committee should also be responsible for working with the City and County on the maintenance, design and development of the large quantities of public property in Downtown Yakima; including parking lots, vacant buildings (code enforcement), public buildings, and right-of-way improvements. IN -111 WILWS f RAIFIFF 86 ORGANIZATIONAL FRAMEWORK Figure 7 1 Sal1111. rth 1 runt 11rcel linlxu.cnicnl Pim Public Liaison l unuult lcc • 1'1111. \1,1. \1111„11.111 • 1. .1111111111. 11111 Central Business District Market Share Study Downtown Yakima, 1Vashington a 1l'arketing ( wnuullce Executive Director Transportation l onimil tee - a Design Committee • I1. 11. ,.1 1 )1,• 1.11111. • I'..rAing • I1nNnc i'r.tir. an.n \,1..11.1111 • I lan.1 Nev.• (1n.irunlxl 1.1111 \11. • 11x111 • Sign (natrnl 1'1011,111. • ',gm, • Ylanlnng lncetcr YJAInu ( hmnher nl Doaallwn Arca ItLtic,c11111n1cnl l ulnnllsvin Fund Raising Committee • Ice0 Agrulnenly • lawalIun. • Mcnllmshan • Lanai [moan: • Spacial Avc0Vlw'nIS hdtclhte t)rgenitauurn Downtown Yakima Partnership Inc. • I'nx•cr1y Ac.hfva1x' • I'roptil) I )cvchrynn.11t CBD MARKET SHARE STUDY City of Yakima, Washington A strong liaison should be developed for security purposes as well, including supplemental police services and additional street/ pedestrian lights. The Yakima Downtown Council may wish to propose a change in the hours of "high visibility police" protection, increased foot patrols at specific locations (for example, the Mall garage), and supplemental pay agreements using off-duty police officers as a private security force. Further, for public areas where crime is perceived to be a problem, additional street/pedestrian lighting may be proposed with property owners bearing the additional operations and maintenance costs. Marketing Committee This committee's task is one of the most difficult -- difficult because the individual entrepreneurial psychology of downtown mer- chants often makes store managers unwilling to consistently work together toward a common goal. The responsibilities of the Marketing Committee include: • Establishing common and frequent hours of business; • Implementing joint advertising programs that promote Downtown Yakima; • Agreeing to strong subareas, defined by tenant mix; and • Formulating common promotional efforts. One reason malls have competed so successfully in the past is that each of the above items is controlled through a lease agreement. The spirit of cooperation necessary to generate the energy for imple- mentation should be provided by the individuals with a vested interest in Downtown Yakima, including owner and merchants. However, assisting the effort with joint lease and/or ownership agreements may better assure consistency in store hours, promotional efforts and BU(N� WILDS f 1tirr 88 CBD MARKET SHARE STUDY City of Yakima, Washington tenant mix. A further step which may be undertaken to superimpose tenant restrictions in given areas is the utilization of use limita- tion with "floating" or "overlay" zones. However, this brings in a layer of governmental authority which may not be welcome. Finally, it is this committee's responsibility to formulate pro- motional and advertising programs with which to stimulate increased activity in the downtown_and include the following elements: • Regular special events; • Coordinated sales and hours; • Aggressive advertising on radio, in the newspaper and with special fliers; • Parking promotions centered on the Mall Garage; and • Improved merchandising and window displays. Transportation Committee Working with the report prepared by the TRANSPO Group, the Transportation Committee will be trying to solve perceptual problems as much as real problems. Their greatest challenge will be not to become too concerned with reality and accept that perception is often more difficult to overcome than fact. Parking will be the greatest challenge for this committee; with supply now exceeding demand, under -utilization of the Mall Garage, but a strong feeling of too little parking. In addition, this committee will work closely with the City on improved signage (to shopping and parking), traffic signal coordina- tion, transit improvements, pedestrian improvements, and street improvement projects. BU(N� WILDS f ;AI[IEF 89 CBD MARKET SHARE STUDY City of Yakima, Washington Design Committee The Design Committee's role will be largely one of review. As projects are proposed, both public and private, it will be this committee's responsibility to 1) evaluate each design for general conformance to the plan proposed by the Kasprison Design Group; 2) encourage the preservation of buildings with intrinsic architectural value; 3) develop a reasonable sign policy that both communicates necessary advertising and complements downtown design; and 4) under- takes or encourages new planning, projects as present plans are implemented. Fund liaising Committee At the outset, the Fund Raising Committee will be among the busiest. Monies will have to be raised to 1) hire staff, 2) continue to employ and "house" that staff, and 3) begin projects and promo- tions. Over the years almost every technique of fund raising has been tried, with varying degrees of success, depending on each business group. The following fund raising techniques are among the most common and successful for implementing downtown revitalization efforts: • Lease agreements which require a portion of the lease (on a square foot, percent of sales, or employee basis) be dedi- cated to the Yakima Downtown Council. If property owners are responsive, this tool can assure a relatively steady cash flow not dependent on annual membership drives and collections. • Donations and memberships are also common fund raising tech- niques. Belonging to the Yakima Downtown Council may "tap" BU(N� WILLUS 90 CBD MARKET SHARE STUDY City of Yakima, Washington into the existing membership "pie" and reduce memberships in other organizations, but should be considered. Donations are often better as either an initial buy -in for organization start-up and/or for special projects and events. • Grants from both public and private sector agencies and earned income should always be reviewed as a fund raising opportunity. Denver's downtown raises approximately $1.96 million from grants (mainly private sector) and earned income. Earned income can,be derived from special events, festivals, parking fees, street vending operations (the Denver Partnership raises $30,000 annually from street vend- ing) and special product sales (for example, tourist items can be produced by the Downtown Council and sold through local retailers). • Finally, special assessments are a common means of raising money for downtown revitalization, particularly for improve- ment projects common to the public sector (parking, street, sidewalk, lighting, landscape, etc.). The last committee identified, the Downtown Yakima Partnership, Inc., is not a committee but rather a subsidiary corporation. The need to stimulate real estate development projects in conformance with the Kasprison Design Group plan, may be accomplished through a development corporation. Further, some businesses and individuals may be unwilling to donate large sums of money to fund downtown improvements, but, become very interested in investing in real estate development projects. BU(NFR. WIFl1S F RAIUFF 91 CBD MARKET SHARE STUDY City of Yakima, Washington PUBLIC SECTOR ROLE Almost all successful downtown redevelopment projects have one common variable —•- an aggressive, enthusiastic and active local gov— ernment. Business people in Yakima have been fortunate to have the support of the City of Yakima as well as a willing and able profes— sional City staff. As in Yakima, the City must often take the lead and provide the initial catalyst with which to begin the development process, but, the business community must provide the momentum. However, while the private sector must continue to provide the impetus for implementation, the City's role may increase over time, including: • Providing political support for plan implementation; • Encouraging flexibility in project development; • Providing assistance in land acquisition; • Subsidizing parking lot construction with easy terms; • Leasing City—owned property on easy terms; • Providing tax abatement, where possible; and • Assisting the Yakima Downtown Council to obtain Federal and State grants and loans. It is rare for a downtown project not to need public sector financial assistance if it is to be feasible. While justification to the taxpayers is often difficult, the loss of sale tax revenues, property taxes and jobs resulting from too dispersed a retail community and the presence of empty, deteriorating buildings in the downtown should be sufficient justification. The dispersal of Yakima's present retail activities is at the heart of its loss in market share, costing the City a loss of approximately $154,500 annually in sales tax revenues based upon 1985 �lXN4k WILIIS f RAIUFE 92 CBD MARKET SHARE STUDY City of Yakima, Washington sales. The recapture of this loss alone can justify significant public sector investment and does not include gains in retail leakage that could be recaptured by improved performance. An additional, somewhat more controversial, role the City can assume is that of co -developer in real estate ventures with private developers and/or the Downtown Yakima Partnership (if formed). When a project appears socially desirable from the community's standpoint but financially unfeasible, the City can join in the development process.1 Leveraging public monies into essentially private develop- ment deals can make them feasible, however, public entry must not slow the process or make it overly cumbersome and consequently dissuade the development and financial community. RECOMMENDATIONS This report is one component of a larger Downtown Yakima Revitalization Plan which includes a Market Share Study by Bucher, Willis & Ratliff, a Design Plan by the Kasprison Design Group, and a Traffic and Parking Study by the TRANSPO Group. Each study contains a variety of improvement recommendations, based upon the level of commitment to revitalization and the amount of risk both the business community and City are willing to take in preserving and enhancing Yakima's Downtown. Chapter 6, Development Strategies, of this report, contains recommendations concerning growth, functional and design improvements needed to improve Downtown Yakima's marketability. 1Given the State of Washington's conservative bent, some caution should be used., however, municipal authority is generally common from state to state, so it becomes a matter of interpretation. Ra 9 3 CBD MARKET SHARE STUDY City of Yakima, Washington Recommendations are made for three levels of economic activity and are listed below, under general development goals. GOAL: Stabilize and strengthen individual areas of the Central Business District with compatible and supporting activities. An objective of this goal is to establish recognizable sub- areas within the larger Downtown to improve the shopper's "mental map" of the area, stimulate comparison shopping, establish individual subarea identity, and establish the critical market "mass" in those subareas to encourage revitalization. Project: Establish joint advertising and promotional programs which identify both the Central Business District, specific product, and product subarea. Project: Promote additional subarea organizations and membership in the Yakima Downtown Council. Project: Encourage participation in either an ownership organization or common lease agreement which identifies permitted uses by geographic area (a special zoning overlay district can accomplish this same result, but imposes another "layer" of governmental control). Project: For businesses not now located within an area designated by the plan, encourage relocation to the appropri- ate subarea with location and financial strategy assistance provided by the staff of the Yakima Downtown Council. BU(NFk WI1_11S f RAFUFF 9 4 CBD MARKET SHARE STUDY City of Yakima, Washington GOAL: Encourage new development and reinvestment in the Central Business District. An objective of this goal is to both entice new businesses into the Central Business District and encourage existing businesses to reinvest in the area. Project: From the Market Share Analysis, Urban Design Plan and Traffic/Transportation Plan, prepare an advertising "piece" in which the advantages and opportunities of a Down- town Yakima location are identified. Project: Moving outward in concentric zones from Downtown Yakima, systematically contacting successful businesses and encouraging them to establish branch stores in Downtown Yakima. Project: With both public and private monies, establish a commercial revolving loan fund (CRLF) which provides total or partial long-term, low-cost loans with which to make land and/or building improvements in the CBD. Project: Utilizing CDBG funds, work with the City of Yakima to develop a facade rebate program with which small business can be provided design assistance and whole or partial rebates for the cost of improvements to store, facades in the CBD. ' Project: Establish an increased awareness of SBA 503/504 debentures and assist small businesses with loan packaging. B_(IIER f Plug 95 CBD MARKET SHARE STUDY City of Yakima, Washington Project: If the "Business Expansion" strategy is adopted, prepare a development agreement with the owner of the property on the north side of Yakima Avenue, between 3rd and 2nd Streets reserving that land for a single, large project. In exchange, provide the owner with development, parking and financing assistance. Project: Develop a local program, in cooperation with the County Assessor's Office, that does not penalize business owners, through higher property taxes, for essentially non - revenue generating improvements (such as facade improvements and landscaping). Project: Work with CBD property owners to establish rent "ceilings" in the downtown area that give owners a reasonable return but do not dissuade businesses from locating in the CBD over newer outlying space. Project: With City assistance, establish a flexible parking ordinance for new CBD developments which combines and/or mixes off-site parking, shared parking (particularly for businesses with evening peaks such as theatres) and on-site parking. GOAL: Maintain the CBD as the primary shopping area in the City of Yakima, Yakima County, and Central Washington. Elimination and reversal of the erosion of the business base within the CBD is the objective of this goal and may well be the most important of all goals to be addressed by the Downtown Council. eucN� w��us �IUFE 96 CBD MARKET SHARE STUDY City of Yakima, Washington BU(NEk WILDS + RAiIIFE Project: Establish a strong movement within both the City of Yakima and Yakima County to discourage the establishment or significant expansion of new retail shopping centers outside of the CBD. Project: Depending upon the development strategy undertaken, establish a program of public and private capital improve- ments which contribute to the "feeling" of being in a major shopping environment. Projects to be included are identified below (and are more thoroughly discussed in the Kasprison and TRANSPO reports): • Synchronize signals on Yakima Avenue; • Construct the one-way pairing of 8th and 9th Streets north of Yakima Avenue; • Improve directional signage, particularly to parking, in the CBD; • Remove pedestrian mid -block crossings on Yakima Avenue; • Develop satellite parking for CBD employees, particularly public sector employees, with shuttle buses to and from lots and around the CBD for mid-day excursions; • Improve pedestrian safety and convenience with safe - crosses at intersections, landscaping, awnings, benches, street lighting and window displays (some downtowns have established award programs for window displays as an incentive to participate in improvements); • Try to provide alternative access to Boise -Cascade; • Maintain present street -level parking and expand as possible and where most needed; • In the area around the Mall, establish a two-tier pedes- trian circulation system with escalators and skywalks (under Business Expansion scenario); 97 CBD MARKET SHARE STUDY City of Yakima, Washington o Refocus and redesign the west Mall entrance to a 3rd and Yakima orientation; o Establish the interchange area of Yakima Avenue and 1-82 as the highway entrance to the CBD; o Focus design improvements, particularly public sector improvements, to intersections, including banners, cross- walk treatments, and landscape improvements; o Encourage new construction in the CBD to have a street - level focus. GOAL: Establish the CBG as the cultural and entertainment district of Yakima County. An objective of this goal is to take advantage of a relative- ly untapped opportunity in Yakima County -- the expansion of entertainment and cultural activities. Project: Tie together the Convention Center and surrounding hotel properties with the vacant land east of the Holiday Inn as a focal point for high visibility tourism activities. Project: Emphasize the expansion of convention activities in Yakima with "packaged" CBD services (restaurant, shopping, entertainment) provided to convention attendees and spouses. Project: Identify a location, and construct, a special events plaza in the CBD. Project: Construct a tourism/culture center in the CBD which emphasizes the culture, history and agricultural products of the Yakima Valley. Rug WILDS 98 CBD MARKET SHARE STUDY City of Yakima, Washington Project: Assist businesses,, where appropriate, to preserve the architectural and historical integrity of their buildings as part of expansion or improvement plans. GOAL: Establish the Yakima CBD as the place to shop rather than a place to shop. Once a shopping/business area becomes recognized as an activ- ity place, it can almost become self -reinforcing. An objective of this goal is to bring recognition to the CBD as not only a place to shop but a place to go and do things. Project: Develop a program of regular special events in the activity space (e.g., brown bag lunch concerts, special sales, shows - such as a special car display when vintiques are in the area, ethnic events, etc.). Project: Utilize the Mall Garage for special events, such as art shows, which can improve both CBD traffic and stimulate future garage usage. Project: Restructure CBD parking rates, particularly in the Mall to encourage greater usage. Project: Expand the parking garage validation program to businesses outside the Mall and require participation through lease agreements. Project: Develop a regular series of special shopping and special events programs which are designed specifically for CBD workers. RU(NLR WILDS f RMUFF 99 CBD MARKET SHARE STUDY City of Yakima, Washington BU(IlEk WII{]S S BAILIFF Project: Establish a program of advertising and[ special promotions designed to emphasize the CBD as the shopping destination. 100 CBD MARKET SHARE STUDY City of Yakima, Washington APPENDIX I --- ACTIVITIES BY CATEGORY II --- SHOPPER SURVEY III --- MERCHANT SURVEY B[JUD. WILTS ZMUFF CBD MARKET SHARE STUDY City of Yakima, Washington APPENDIX I ACTIVITIES BY CATEGORY (RETAIL TRADE) Building Materials/Hardware Lumber/Building Materials 521-522 Paint, Glass, Wallpaper 523 Hardware Stores 525 Nurseries/Garden Supplies 526 Mobile Home Dealers 527 Other General Merchandise - Department Stores Variety Stores Other General Merchandise Food 531 533 Grocery Stores 541 Fruit/Vegetable/Meat 542-543 Candy/Nut/Confectionery 544 Dairy Products 545 Bakeries 546 Other Food Stores Auto Dealers/Gas Stations Auto Dealers (New/Used) 551-552 Accessory Dealers 553 Service Stations 554 Marine/Aircraft, Etc. Apparel/Accessories Clothing 561-565 Shoes 566 Other Accessories Furniture/Furnishings/Equipment Furniture 571 Appliances 572 Radio/T.V./Music Stores 573 Other Eating/Drinking Places Miscellaneous Retail Stores Drug Stores 591 Miscellaneous Shopping Goods 594 Nonstore Retailers 596 Fuel/Ice 598 Other Retail Stores U(H k WILUS f gLIFF Store Interiors 1 2 3 4 5 Building Appearance 1 2 3 4 5 StPLAPlis&T SHARE STUDY 1 2 3 4_ 5 TAALke64k8pa, Washington 1 2 3 4 5 Parking 1 2 3 4 5 Condition of Sidewalks 1 2 3 4 5 Street Signs/Directional Signs 1 2 3 4 5 Traffic (Is it easy to drive in (Downtown Yakima?) 1 2 3 4 5 Other 1 2 3 4 5 15. WHAT IMPROVEMENTS WOULD YOU LIKE TO SEE IN DOWNTOWN YAKIMA? lg Do you think new or different types of stores, other than what we have now, are needed in Downtown Yakima (circle)? Yes No If so, that type(s)? (Use alphabetical code frau back s1 .e of page one or enter here: 17. Do you feel we need additional stores and services of the same type that we now have in Downtown Yakima (circle)? ' Yes No If so, what type(s)? (Use alphabetical code franback side of nae one or enter here° 18. DO YOU THINK PARKING IMPROVEMENTS ARE NEEDED? YES NO IF YES, WHAT TYPES OF IMP s MENTSDO YOU RECOMMEND? 19. IF MORE STORE SPACE WERE AVAILABLE TO YOU, WOULD YOU RENT OR PURCHASE IT? YES NO 20. WOULD YOU BE WILLING TO CONTRIBUTE (PAY) TO A FUND FOR DOWNTOWN IMPROVEMENTS SUCH AS PARKING LOTS, ADDITI s STREET IMPROVEMENTS, LANDSCAPING, BETTER LIGHTING, ETC.? YES NO 21. ARE THERE ANY ' S NOT MENTIONED THAT YOU WOULD LIKE TO SEE IN THE DOWNTOWN OR OTHER COMMENTS YOU WOULD LIKE TO MAKE? BU(N[R WILUS f P�IUFF CITY OF YAKIMA, WASHINGTON CBD MARKET SHRRE'g► r,PLANNING PROGRAM City of Yakima, Washington SHOPPER SURVEY The City of Yakima is conducting a survey of customer shopping habits and attitudes towards Downtown Yakima. Answers to the following questions would be very helpful in our evaluation of the Downtown area so the City can prepare a plan to help guide future development in Downtown Yakima. Your assistance le vital If we are to obtain Information that accurately reflects the needs of our community. Would you mind taking a few minutes to answer our survey questions? 1a. City & Zip Code (If outside Yakima Urban Area) 1 1 1 1 lb. Urban Area Location Code (if Inside Urban Area) 1 1 City Zip Code 2. Sex (circle) M F 3. Would you please indicate into which of the following age groups you fit into? ❑ 18 or less 0 19-30 ❑ 31.45 0 46.60 0 over 60 , 4. Occupation (circle) (if unemployed, give spouses occupation): a. accounting b. attorney c. banking d. building trade e. business manager/owner f. construction contractor g. office clerk h. farmer/rancher 1. farm hand/field labor J. gas attendant k. government employee (local, state, federal) I. medical technician m. military (enlisted man, officer) n. nurse o. sales clerk p. salesperson q. secretary r. student s. truck driver t. warehouse/factory worker/fruit packer u. other blue collar v. other white collar w. unemployed (both respondent & spouse). x . retiree. 5. Do you or your spouse work downtown? (circle) Yes No 6a. (Downtown Interviews) What was the primary purpose for this trip downtown? (enter code from 6b.) 6b. (Phone and non -downtown site interviews) What is the primary purpose you carne downtown? (circle response) a. to shop d. banking g. dining b. medical appointment e. city/county government h. to meet people c. attorney appointment f entertainment I. never come downtown J. other If to shop (a.) where? a. Downtown -east; b. Downtown -west; c. Front Street; d. Mall. 7. How often do you shop in Downtown Yakima? (check one) ❑ daily 0 weekly ❑ monthly 0 seldom ❑ never RU(I R Wig f RAJUFF o. rm going to read a lin ar items concerning uownxown Yakima. Please rank each from poor to good, or 1 to 5 with 1 being poor, 3 fair and 5 good. CBD MARKET SHARE STUDY FA ITEM City of Yakima, Washington POOR 1 2 3 4 5 GOOD Shopping Environment — (how comfortable or 1 2 3 4 5 pleasant is It) Prices (how competitive) 1 2 3 4 5 Selection of goods 1 2 3 4 5 Convenience 1 2 3 4 5 Special Sales Events 1 2 3 4 Window Displays 1 2 3 4 5 Advertising 1 2 3 4 5) Store Hours 1 2 3 4 5 Service & Assistance (are sales people courteous, helpful?) 1 2 3 4 5 Store interiors 1 2 3 4 5 Building Appearance 1 2 3 4 5 Street Lighting 1 2 3 4 5 Transit Service 1 2 3 4 5 Parking 1 2 3 4 5 Condition of Sidewalks 1 2 3 4 5 Street Signs/Directional Signs 1 2 3 4 5 Traffic (Is it easy to drive In Downtown Yakima?) 1 2 3 4 5 9. What would your preference be for store hours In Downtown Yakima? (circle one or more) Same as now open earlier close later 10. Where do you primarily go to now to shop for the following items or services? (Use map to code area) CODE/LOCATION ITEM CODE/LOCATION ITEM A. Clothing, work 13. Clothing, dress • C. Shoes D. Furniture E. Books F. Stationery G. Gifts H. APPIlanctk WILDS pair I. Hardware — J. Sporting Goods L L N. Doctor 0. Dentist L I P. Medicine/Pharmacy L I O. Banking R. Lawyer L S. Insurance L I T. Auto Service/Parts L I U. Groceries V. Fine Wines W. Movie Theatre ITEM K. Linens L. Lunch CBD MARKET CODEJLOCATION 1111 sFAAkF Tura ITEM CODEILOCATION X. Live Entertainment I 1 1 I Y. Live Music/Dancing I I I 1 M. Fine MIN of Yakima, Wiashingion 11. Do you think new or different types of stores, other than what we have now, are needed In Downtown Yakima (circle)? Yes No If so, what type(s)? (Use alphabetical code from 010 above or write in other types) Code 1 1 12. Do you feel we need additional stores and services of the same type that we now have in Downtown Yakima (circle)? Yes No If so, what type(s)? (Use alphabetical code from 010 above or write In other types) Code 1 I 13. Do you think more restaurants are needed in Downtown Yakima (circle)? Yes No If so, what type(s) of restaurants (circle one or more)? carry out lunch spot fast food sit down fine dining 14. Are there any changes you would like to see in Downtown Yakima? 15. Are there any other comments you would like to make? BIM WINS } RAI1iFF city of Yaklmiardppsm Surviy, November, 1 Yakima, Washington 198F-87 CBD Study CBD MARKET SHARE STUbRCHANT SURVEY City of Yakima, Washington L STORE._ INOIVIDUA' 2. PRODUCT(S) SOLD 3. OWNER OCCUPIED? (circle) YES NO MIUMIMINIMMINOMFAIMINIMMI 4. IF RENTED, FROM W Y `7`ALLE 5. 00 YOU PROVIDE CHAR NTS? (circle) YES NO 6. DO YOU ENCOURAGE PARKING VALIDATION? (circle) YES NO 7. WHAT ME YOUR STORE HOURS? MON. , TUES� , WED______, THUQS�, SUN.®__ 8. IF OTHER STORES REMAINED OPENED LATER IN THE EVENING, WOULD YOU BE WILLING TO DO SO AS WELL? (circle) YES - NO 9. IF YES. HOW MANY NIOHTSA WEEK? IF NO. WHY NOT?moo__ 10. What is (are) your preference(s) for store hours in Downtown Yakima (circle one or more)? same as now 11.. HOW 00 YOU PRESENTLY ADYERTISE? IMMOSONIIIMMIAINIVaMaleir open earlier close late 12. WOULD YOU CONTRIBUTE TO A IF NO, WHY NOT? 01 NTOWN-WIDE ADVERTISINO PROGRAM? YES ND 13. PLEASE DESCRIBE YOUR TRADE AREA IN TERMS OF THE PERCENTAGE OF YOUR BUSINESS. 24. PLEASE RATE THE FOLLOWINO ITEMS FROM ITEM ..r Shopping Environment- rAin POOR 1 2 3 4 GOOD (how comfortable or pleasant is it) Prices (how competitive) Selection of goods Convenience Special Sales Events Window Displays Advertising Store Hours Imilmisfimpistance gore sales people courteous, helpful?) 1 2 3 4 5 1 2 3 4 5 1 2 3 4 5 1 2 3 4 5 1 2 3 4 5 1 2 3 4 5 1 2 3 4 5 1 2 3 4 5 YAKIMA CENTRAL BUSINESS DISTRICT Consultant Recommendations for: CIRCULATION, PARKING AND PUBLIC TRANSIT SERVICES July :14, 1988 Prepared for: City of Yakima and its CBD Business Community Prepared by: The TRANSPO Group, Inc. 14715 Bel -Red Road, Suite 100 Bellevue, Washington 98007 LIST OF FIGURES Page 1. Existing Arterial Street Plan Yakima CBD 2 2. Traffic Volumes and Levels of Service Yakima CBD 4 3. Vehicle Trips Crossing CBD Cordon 5 4. CBD Bypass System West Transition 10 5. CBD Bypass East Transition Option 1 13 6. CBD Bypass East Transition Option 3 15 7. CBD Bypass East Transition Option 4 16 8. East CBD Gateway 17 9. CBD - Fairgrounds Route Connections 20 10. Arterial Classification Plan (Aggressive CBD Development Option) 24 11. CBD Street Use Plan (Aggressive CBD DevelopmentOption) ......0000.......0.000 26 12. CBD Off -Street Parking Facilities 30 13. Vehicle Accumulation with CBD .......0000 31 14. Yakima CBD Public Parking Utilization - 10/4/86 33 15. Yakima CBD Public Parking Utilization - 10/7/86 34 16. Yakima CBD Public Parking Utilization - 11/28/86 35 17. CBA Core Area Parking Supply & Demand .000...0 37 LIST OF T«LES 1. Summary of CBD Land Use .............000036 2. CBD Core & Fringe Area, Weekday "Design Level" Parking Demand 0000...0000 39 3. CBD Parking Characteristics For an Urban Area of 150-200,000 Population 45 4. Minimum Parking Supply Requirements 52 TABLE OF CONTENTS Page PART 1 - CIRCULATION CURRENT CONDITIONS 1 Designated Street Functions 1 TrafficVolumes .....3 Traffic Flow Characteristics 5 Summary of Current Street Operations 7 ISSUES AND OPTIONS 8 Thru Traffic Bypass System Options 9 West Transition 9 East Transition 11 East CBD Gateway Area 14 CBD - Fairground Connections 19 Yakima Avenue Options 19 Public Parking Signing Needs 23 Other Issues and Options 23 RECOMMENDATIONS 23 Arterial Classification Plan 23 CBD Street Use Plan 25 Specific Issues and Options -- Six Year TIP 27 Long Range Plan Improvements 28 PART II - PARKING CURRENT CONDITIONS 29 Parking Supply 29 Public Parking Utilization 32 THE PARKING PROBLEM/CHALLENGE 40 STRATEGIES AND PARKING MANAGEMENT OPTIONS 43 CBD Parking Management Association 43 Parking Duration and Types of Control 45 Parking Fees� ... ... ...47 Long -Duration Employee Parking 49 Expansion of Public Parking Supply 49 CBD Land Use Parking Code 50 Driver Guidance and Information 52 RECOMMENDED PARKING MANAGEMENT PROGRAM 53 PART 1 - CIRCULATION CURRENT CONDITIONS TG: 86274.01 Designated Street Functions The street and arterial system serving the Yakima CBD is illustrated on Figure 1. The highlighted streets reflect the current plan for arterial street function. The various arterial function classifications are described as follows: • Major (Principal) Arterial -- A multi -lane arterial street with a primary function to serve long distance thru traffic needs, and a secondary function to serve corridor land access. On a suburban street grid, it is desirable to have major arterials located at approximately one -mile spacings. Traffic volumes can range from 10,000 to 30,000 vehicle trips per day. • Minor Arterial -- A multi -lane arterial street designated to serve high volumes of shorter distance community traffic, and to serve access needs of the corridor or community through which it passes. Traffic volumes can range from 5,000 to 15,000 vehicle trips per day. • Collector Arterial -- A street used as a neighborhood access route to the major and minor arterial system. In commercial areas it could have more than two lanes and daily traffic volumes in excess of 5,000. In residential areas it would typically be a two-lane street with parking on both sides and daily traffic volumes of less than 5,000. • Local Street -- Streets intended to serve local access to abutting homes and/or businesses; not intended to carry thru traffic of any kind. Yakima and Summitview Avenues provide a major east -west traffic arterial to each end of the CBD. To minimize thru traffic penetration of the CBD, Walnut Street and the Lincoln Avenue/"B" Street one-way couplet have been ARTERIAL CLASS: PRINCIPAL ARTERIAL MINOR ARTERIAL ••"•COLLECTOR STREET taallaMen1171 MIME 116111 1"11 North EDED117 T71, d API 1. -14/1 1 ,1200 EOM mnnrun Inummommitamianniamszalegmemmazamasa=awmnamov YAKIMA CENTRAL BUSINESS DISTRICT FIGURE 1 EXESTING ARTERIAL STREET PLAN YAKIMA CBD I if 1 r 1 T -2- IG: 86214.01 designated as the east -west thru traffic routes along the fringes of the CBD. Crossover connections to/from Yakima and Summitview Avenues are desig- nated at Pierce Avenue and S 7th Avenue near the west end of the CBD, and at 6th Street near the east end of the CBD. Yakima Avenue was downgraded to a minor arterial status west of 1st Street, and to a local Street through the older "CBD core" area between 1st and 6th Streets. 1st Street is the only major north -south arterial Street east of the Burlington Northern Railroad (BNRR) line. It was historically the major north -south State Route (SR) 97 through Yakima. Intercity and interstate traffic now bypass the Yakima CBD on the I-82 freeway. Fruitvale Boulevard and N 5th Avenue are major arterials serving the CBD from the northwest sector of Yakima. Tieton Drive and S 3rd Avenue (Broadway) carry heavy traffic volumes to and thru the CBD from the southwest sector of the City; however, they are currently designated as minor arterials. Traffic Volumes Traffic volumes on the CBD Street system are illustrated on Figure 2. These represent average weekday 24-hour, two-way traffic volumes. Yakima Avenue and 1st Street carry the heaviest traffic volumes into the East CBD. N 5th Avenue, Lincoln Avenue, Summitview Avenue, S 5th Avenue and S 3rd Avenue all carry heavy traffic volumes into and through the West CBD. The Lincoln Avenue/"B" Street one-way couplet is attracting a substantial amount of east -west thru traffic away from Yakima Avenue. However, it could perhaps be even more effective as a bypass route if its eastern connections with Yakima Avenue (currently at N 6th Street) were strengthened geometrically with improved bypass signing. Yakima Avenue traffic reaches its lowest levels in the vicinity of Yakima Mall. This is by intent under the current street use plan. The signals along Yakima Avenue between 1st and 6th Streets are not syncronized for progressive thru traffic use of this portion of Yakima Avenue. Traffic flow progression is further disrupted by the mid -block pedestrian crossings which were intended to give pedestrians priority over vehicular traffic. -3 Th North LEDGEND: 16,300 —1986 24-HOUR TRAFFIC COUNT —PM PEAK HOUR LEVEL OF SERVICE _J 44'44,4'44 ''.5t,'54'574 .e .0 :\00 da'an 41.<2111 si—Vra,5 4,‘ 4504. 01 4? 500 f '4, V CD ' 4 01 4,514 '0 0 0 , 5 “555,15„5,5 555 T,,r1 44, .120 YAKIMA CENTRAL NS DISTRICT NESS' F.C3mURE 2 V('L LUES ki-4D LEVELS SERWICE VAK:4,11A CBD -4- TG: 86274.01 Traffic Flow Characteristics Traffic flow characteristics on the CBD street system are typical of a predominantly retail business district. Figure 3 illustrates hourly traffic variation for the sum of traffic at all CBD entry points (street crossings of an imaginary cordon line around the CBD). Traffic volumes continuously increase during morning hours to a high point around noon. Inbound and outbound traffic combined continue at this peak level until 5:00 PM, after which time volumes rapidly decrease. Between 7:00 and 9:00 AM there is a noticeable inbound peak caused by office and retail employees. Between 3:00 and 6:00 PM there is an even greater outbound traffic peak with many shoppers added to the employee commute traffic. A total of 172,000 vehicle trips per day were counted as entering, exiting, or passing through the CBD during the October 1986 survey period. Figure 3 VEHICLE TRIPS CROSSING CBD CORDON BY HOUR OF DAY 9000 8000 7000 DO �, 6000 El 5000 W U 4000 3000 2000 1000 0 I CO a- CID rn ..< Cr) d' en CIO co 0) HOUR OF DAY 5 1.4 4 m —+— INBOUND --°-- OUTBOUND IG: 86274.01 The quality of traffic flow is measured in terms of "level of service" during the peak traffic volumes hour of the day -- 4:30 PM to 5:30 PM in Yakima. Level of service is defined as follows: Level of % of Service Capacity Description A Less than 60% Free flow; no disruptions other than normal signal delays. 60% to 70% Some impedance by other traffic; may occasionally await a second signal cycle. C 70% to 80% Generally accepted as tolerable limit in small cities. D 80% to 90% Significant delay; tolerable limit in larger urban areas. E 90% to 100% Considerable delay; unacceptable traffic operation conditions. F Over 100% "Jammed" conditions; extreme delay. Traffic counts were collected and analyzed at the key CBD intersections, noted by circles and letters on Figure 2, during the morning commuter time, noon to 1:00 PM, and 4:00 to 6:00 PM. The computed worst cast: level of ser- vice for each intersection is shown on Figure 2. These conditions generally occurred at noon and/or between 4:30 and 5:30 PM. Traffic flow quality within the Yakima CBD is calculated at level of service B at most locations, and level of service C at two locations along Yakima Avenue -- 1st Street and 8th Street. This is considered an acceptable level of service in cities of Yakima's size. The public perception of traffic congestion in the CBD is generally caused by the uncoordinated signal opera- tions along Yakima Avenue east of the BNRR. Thru traffic flow on Yakima Avenue tends to be stopped by each signal. It is the resultant cumula- tive signal delay, not street capacity, that causes the perception of conges- tion. Yakima Avenue could carry from 25 to 40 percent more traffic before street and intersection capacity becomes the cause of congestion. The same would be true for E. Walnut Street. 6 TG: 86274.01 One notable exception where intersection capacity is a factor is the intersection of Yakima Avenue and 2nd Street. Yakima Avenue does not provide a center left -turn lane at this intersection. Consequently, left -turning traffic from Yakima Avenue blocks the inner thru traffic lanes. The one-way traffic flows on Lincoln Avenue and on "B" Street allow good signal coordination and traffic progression along this street "couplet." This CBD bypass corridor could carry up to 50 percent more traffic before conges- tion would occur as a result of street and intersection capacity limitations. Summary of Current Street Operations The CBD vicinity street and arterial system generally operates adequately in terms of traffic capacity and levels of service. Travel delays experienced by motorists are mostly a function of normal delays associated with a signal- ized street grid. Within the CBD the number of signalized intersections is much greater than elsewhere in the City; hence, perceptions of traffic conges- tion are higher. The signal system is very efficient and introduces a minimum of delay since nearly all signals have two-phase operation and a cycle time of under one minute. The one notable exception is the signal at 1st Street and Yakima Avenue which provides added protected left -turn phases and therefore a longer cycle time (all of which are necessary and justifiable). Signal coor- dination along most streets appears to be about as good as can be achieved (short of going to citywide computer control) to maintain progressive traffic flow. The obvious exception is Yakima Avenue through the East CBD where signal coordination has been purposely ignored to discourage thru traffic flow. If no significant changes or improvements of the CBD street system are made, it can still well serve traffic needs over the next 10 to 15 years. Such a "no action" scenario is consistent with a low or no -growth economic scenario for the CBD --no new money, no street improvements. The existing street system has adequate reserve capacity to meet the low growth scenarios for the City and County of Yakima. -7 TG: 86214.01 ISSUES AND OPTIONS If a more aggressive econo is future for Yakima and its CBD is pursued, and/or street changes and impr vements can be funded, there are a number of issues and options to pursue. These issues and options are outlined below, and discussed in the following sections. • Revise and strengthen the CBD traffic bypass system. • Improve N 6th Street as the east terminus of the Lincoln/"B" one-way bypass system. • Develop an 8th/9th Street one-way couplet as the east terminus of the Lincoln/"B" bypass system. • Resolve traffic congestion problems on N 8th Street north of Yakima Avenue. • Develop a circulation and access plan for the east CI3D development opportunity area in the vicinity of the I-82 interchange. • Provide improved traffic connections between CBI) hotel and convention center facilities and the Yakima Meadows/Central Washington State Fairgrounds. • Upgrade Yakima Avenue to improve traffic operations and capacity, and to provide better signal progression for thru traffic. • Downgrade Yakima Avenue east of 1st Street to maximize parking and pedestrian use. • Maintain traffic and parking integrity of 3rd Street in the East CBD. • Revise public transit operations to minimize impacts of CED streets and businesses, and to enhance transit use and convenience. 8 TG: 86274.01 • Improve informational signing and access to the Yakima Mali parking garage and to public parking facilities. The balance of this chapter amplifies on issues and options for CBD circu- lation improvements. The next chapter summarizes the consultant's recommenda- tions for CBD circulation improvements. Parking and transit issues are dis- cussed in Parts II and III of this report. Thru Traffic Bypass System Options During the 1970s, the City implemented the Lincoln Avenue/"B" Street one- way street couplet with the intent to provide an east -west thru traffic "bypass" route along the north periphery of the CBD. 6th Street is the desig- nated east transition route between Yakima Avenue and the Lincoln Avenue/"B" Street and Walnut Street bypass routes (see Figure 1). Pierce Avenue/S 7th Avenue is the west transition route. The bypass system has been successful in diverting thru traffic away from Yakima Avenue, as can be seen by inspection of the traffic counts shown on Figure 2. However, the bypass could perhaps be even more effective. The following options are offered for consideration by the City and its CBD business community. West Transition. Figure 4 illustrates a concept for strengthening the thru traffic bypass system at its Pierce Avenue (west) transition. It recog- nizes the "Seventh Avenue Commons," an urban design concept set forth by the urban design consultant for a people oriented node at the west end of the CBD, by de-emphasizing the use of 7th Avenue north of Yakima Avenue. By terminat- ing 7th Avenue south of "B" Street, the safety of the Pierce Avenue/ "B" Street transition intersection would be improved. A second northbound lane should be planned for Pierce Avenue between Summitview and "B" Streets to improve its long range northbound transitional capacity (as or when sufficient right of way can be acquired). Shown also on Figure 4 is a rechannelization concept for Pierce Avenue between Lincoln Avenue and "B" Street to improve the operation and safety of the Lincoln Avenue to "B" Street transition. New directional signing could be added, as illustrated on Figure 4, to further reinforce the desired traffic bypass patterns. 9 North NOTE: THIS IS A CONCEPT PLAN ONLY FOR ILLUSTRATIVE PURPOSES. YAKIMA 3ENTRAL BUSINESS DISTRICT FIGURE 4 CBD BYPASS SYSTEM WEST TRANSITION -10- TG: 86274.01 East Transition. The east transition for the CBD traffic bypass system involves a multiplicity of the issues and options outlined above. It is interrelated with the east CBD urban design "gateway" feature location. It is interrelated with the "East CBD Entry Greenway and Agri -Cultural Festival Grounds" urban design proposal. It is interrelated with choice of a CBD - Fairgrounds route designation. It is interrelated with current traffic con- gestion on 8th Street north of Yakima Avenue. Some options could have signi- ficant environmental impacts on the existing residential neighborhood along the 8th/9th Street corridor north and south of Yakima Avenue. The south bypass east transition is currently focused on 6th Street bet- ween Yakima Avenue and Walnut Street. The north bypass east transition is divided between 6th and 8th Streets between Yakima Avenue and the Lincoln Avenue/ "B" Street couplet. None of the bypass options are clearly designated by signing reinforcement. Though Lincoln Avenue and "B" Street each provide three one-way traffic lanes, neither 6th nor 8th Streets have been configured for high volume traffic use -- they each provide only one thru lane in each flow direction. The eastbound operation of "B" Street is configured with right -turn only lane drops at Naches, 6th and 8th Streets -- further confusing the desired transition routing. Four transition improvement options have been investigated: • Option 1 - Clearly designate 6th Street as the desired transition route between the north and south bypass routes. This would require removal of parking along both sides of 6th Street between Walnut Street and Lincoln Avenue, and converting it to five -lane operation (2 thru lanes each way plus a center left -turn lane). • Option 2 - Develop a 6th/8th one-way couplet with 8th providing three northbound lanes from Yakima Avenue to Lincoln Avenue, and with 6th Street providing three southbound lanes from "B" to Yakima Avenue. Sub -option: Extend couplet south to Walnut Street. • Option 3 - Develop a 6th/8th semi -couplet north of Yakima Avenue with 8th Street providing two north lanes and one southbound lane, and 6th Street providing two southbound lanes, a center left -turn lane, and one northbound lane. Parking along the west side of 6th Street would need to be eliminated under this option. TG: 86224.01 • Option 4 - Develop an 8th/9th one-way couplet with 9th Street provid- ing three northbound lanes between Yakima and Lincoln Avenues, and 8th Street providing three southbound lanes between "B" Street and Yakima Avenue. Sub -option: Extend couplet south to Walnut Street. Options 2, 3, and 4 would all require removal of the pedestrian island on 8th Street adjacent to the convention center. In all options the intersection of 9th and Yakima Avenue should be signalized to improve local traffic access and safety; and the truck turning radius on the northeast corner of Yakima Avenue and 8th Street should be improved. The street operations plan for Option 1 is illustrated on Figure 5. A new traffic signal would be needed at 6th and "B". Lincoln Avenue and "B" Street east of 6th Street could be converted back to two-way operation with unbal- anced lane configurations. Parking along the north side of Yakima Avenue east of 6th Street would be eliminated to add a third westbound traffic lane bet- ween the north -to -east freeway ramp merge point and 6th Street. Bypass route signing would be installed on Yakima Avenue east of 6th Street to strengthen bypass directions, and on the westbound approaches to 6th Street on Walnut and "B" Streets. Log trucks would continue to use 8th Street bet- ween Yakima Avenue and Boise Cascade; however, traffic on 8th Street would be reduced such that the pedestrian island could be maintained. The new signal at 9th Street and Yakima Avenue would also reduce southbound left turns at 8th Street and Yakima Avenue. South of E Walnut Street, S 6th Street could be visually enhanced and signed as the promoted CBD - Fairgrounds routing via Pacific Avenue (see "CBD - Fairgrounds Route Options" section below). Option 2 of developing a 6th/8th Street one-way couplet between Yakima Avenue (or Walnut) and Lincoln Avenue/"B" Street offers some merit over Option 1 in that it would reduce the number of traffic movements through several intersections thereby simplifying signal control and intersection operations. However, a significant flaw in this couplet concept would be in forcing southbound log trucks to divert further into the CBD to use 6th Street, or more likely to divert to 9th Street through a residential neighbor- hood. The two -block spacing between 6th and 8th Streets would, result in more out - of -direction travel, particularly around the convention center superblock. - 12 - • North I-82 *lot l t LANE CONFIGURATION • TRAFFIC SIGNAL i. -S STOP SIGN CONTROL N lOt N 9tn -St • N N 7t .�l N (Ia3 'es Ave Nil St 1 S8� St TO/FROM FAIRGROUND N 3rd .Sts N 2nd W N is s t St YAKIMA aENTRAL BUSINESS DISTRICT FIGURE 5 CBD BYPASS EAST TRANSITION OPTION 1 :6th STREET The TRANSPO Crovp -13- TG: 86274.01 Option 3 illustrated on Figure 6 is the consultant's preferred interme- diate range plan for the east transition. 6th and 8th Streets would be main- tained in two-way operation; however, an unbalanced lane configuration and intersection controls would be employed to encourage northbound flow on 8th Street and southbound flow on 6th Street. Single lanes in the minor flow directions on these two streets would maintain local access flexibility, and would allow southbound log trucks to remain on 8th Street. If conflicts between southbound log trucks and northbound traffic flow to Lincoln Avenue should become a problem. This intersection may eventually need to be signal- ized. Intersection and signal controls would be coordinated to expedite traffic flow in the major flow directions. Conversion from existing street operations to Option 3 operations would be much simpler than would be the case for conversion to Option 2. Option 4 should be viewed as a long-range plan option for the east transi- tion. It is illustrated on Figure 7. This plan would be the most effective in minimizing the depth of CBD penetration by thru traffic, and it would be the most compatible with an aggressive commercial development plana for the east CBD gateway area. A major environmental drawback of this option is that it would route heavy arterial truck and auto traffic onto 9th Street which is currently a residen- tial street. Unless long range land use plans provide for transition of the 9th Street corridor from single-family residential use to commercial or multi- family residential uses, this option would not be desirable to pursue. East CBD Gateway Area The Yakima Downtown Plan recommends a major commercial/cultural develop- ment plan for nearly 50 acres of land area east of the Holiday Inn in the northwest quadrant of the 1-82 interchange. The urban design consultant's illustration of potential development in this east CBD "gateway area" is presented on Figure 8. The concept illustrated is an "Agri -Cultural Interpre- tive Center and Festival Grounds". Alternative development could include an easterly expansion of hotel, convention and restaurant facilities; or possibly a modern campus style office park. -14- _ I 1 North 1-82 LANE CONFIGURATION 0 TRAFFIC SIGNAL p. -S STOP SIGN COTROL 1 diet S 8tti St 1 N7 N6 Std N Nab 'es Ave N 4tS C N 3rd N 2nd N N r as S 2111w St s1: �x WA A MI St St YAKIMA JtNTRAL BUSINESS DISTRICT FIGURE 6 CBD BYPASS EAST TRANSITION OPTION 3 :6th/8th UNBALANCED FLOW TRANSPO Grove —15— n North N 10 'KIN BOISE 9t CASCADE -OUT API. N 8th' St N 401 St' N 3rd t N 2nd YAKIIMA CENTRAL BUSI DISTRICT NESS FIGURE 7 CBD BYPASS EAST TRANSTION OPTION 4 8th/9th ONE-WAY COUPLET -16- 1-.-S L I NCOLN AVE "B" St North agri—cultural fcstival grounds (winery/frutasti xhibits) 1 'I E YAKIMA AVE - ". • Re) d;)elopment pal‘vis chem WALNUT YAKIMA CENTRAL BUSINESS DISTRICT "totsgsv zE r GREENWA VAL GR DS CUL -DEL -SAC FIGURE 8 EAST CBD GATEWAY TO/ FROM FAIRGROUNDS TRANSPO corovp TG: 86274.01 The illustration has been enhanced to show several arterial improvement options for the East CBD Gateway area, including the Option 3 scheme for the CBD bypass system east transition. Since Option 3 places a northbound empha- sis on 8th Street, North 9th could be revised to provide a complimentary southbound emphasis from "A" Street to its new signalized intersection with Yakima Avenue. Illustrated also on Figure 8 are several 1-82 interchange modifications that are being explored by the City to enhance access to this East CBD Gateway opportunity area, and to create a new Fair Avenue arterial corridor between the east CBD hotel/convention/cultural area and the State Fairgrounds area. As development and redevelopment occurs along the Fair Avenue corridor south of Yakima Avenue, there will be growing pressures to improve Fair Avenue to a minor arterial status. A major concern is how to connect Fair Avenue to the CBD arterial street system without traffic penetration of residential neighborhoods along Spruce or Chestnut Streets. Figure 8 illustrates a plan to extend Fair Avenue north under Yakima Avenue and the freeway ramps on a curvalinear alignment into "A" Street and N 8th and 9th Streets. This new route would interconnect the hotel/convention/cultural complex to the Fair- grounds. To further eliminate thru traffic use of Chestnut and Spruce Streets, a new eastbound slip ramp off of Yakima Avenue down to Fair Avenue should be pursued, together with a potential cul-de-sacing of Chestnut Street west of Fair Avenue. A complimentary westbound on-ramp to Yakima Avenue would also be desirable. However, due to the complexity of ramp merging and traffic "weaving" that occurs westbound on Yakima Avenue east of 9th Street, an addi- tional westbound on-ramp from Fair Avenue may not be operationally feasible. It would require a break in the current WSDOT access control near an inter- state freeway which will be difficult to obtain even with less adverse traffic operations and safety consequences. The City is also seeking a new southbound off -ramp from 1-82 into the extended Fair Avenue route. In order to gain Federal and WSDOT approvals of such a proposal, the southbound off -ramp to Yakima Avenue would need to be reconstructed to diverge from 1-85 much further north, and then subsplit between Fair and Yakima Avenues; and sign structures and displays would need to be revised upstream one to two miles. - 18 - TG: 86274.01 CBD -Fairground Connections The City of Yakima and its CBD merchants and services could economically benefit by improved connections between the CBD and the Central Washington State Fairgrounds. Currently there are no "blazed" routes or visually guided route interties between the CBD and the Fairgrounds. It is not only desirable to guide CBD visitors to the Fairgrounds, but perhaps even more importantly to guide Fairground visitors to CBD activities. The urban design consultant has provided a number of CBD -Fairgrounds "blazing" suggestions on page 53 of The Yakima Downtown Plan report. Figure 9 hereinafter presents a recommended CBD -Fairgrounds routing plan. Initially, the City and its CBD merchants should focus on 1st Street, 6th Street, and Pacific Avenue to enhance as CBD -Fairgrounds routes. In the longer term attention should be focused upon Fair Avenue (S 10th Street), and the enhanced connections to and thru the East CBD Gateway area as discussed above. The currently known and used CBD -Fairgrounds route for the east CBD hotel/convention area is via 8th/9th, Chestnut and Fair Avenue. The apparent sentiment of respondants to the routing studies is to downgrade (not upgrade) Chestnut and Spruce Streets as portions of the CBD -Fairgrounds routing plan. Fair Avenue itself is destined to become an arterial route as the east fringe of the City redevelops and matures. Extending Fair Avenue north under Yakima Avenue and west thru the East CBD Gateway opportunity area to the hotel and convention center is a very worthy project for long-range planning. Again, it is economically expedient to "blaze" these routes with direc- tional signing in both directions. Signing toward the Fairgrounds is common along all routes in nomenclature. Reverse signing to CBD activities can be route specific and imaginative -- provided the nomenclature is kept short and simple. Yakima Avenue Options When the Lincoln Avenue/"B" Streets bypass couplet was installed many years ago, it was accompanied or followed by several measures to discourage thru traffic use of Yakima Avenue through the East CBD and to enhance its "pedestrianization". Some of these actions included: -19- '''11st �� NORTH HOTELS & RESTAURANTS I-82 1 North r YAKIMA HOTEL �& J :CONVENTION CENTER KIWANI I ! 1PbAR7.1 E1F_ •AVIS M S. K.CO g)IKck IrEE] n[ Frig r --o I YAKIIAS►EEA OM YAKIMA MEADOWS CENTRA` WASHINGTON STATE F AIRGROUNOS YAKIMA 3ENTRAL BUSINESS DISTRIICT ctel 1..4 FIGURE 9 CE3D—FAIRGOUNDS ROUTE CONNECTIONS -20- TG: 86274.01 • Declassification of Yakima Avenue to a local Street between N 1st and N 6th Streets. • Abandonment of signal coordination along this portion of Yakima Avenue to reduce thru traffic "progression", or increase delay for thru traffic. • Provision of mid -block pedestrian crosswalks at three locations together with addition of other pedestrian amenities. The desire to pedestrianize the Street and lower its traffic volumes is offset by a fear of reduced traffic exposure to fronting businesses. Conse- quently the street now operates in a compromised fashion between N 1st and N 6th Streets. Though the above measures were implemented to discourage traffic use, the street continues to operate as a four to five -lane street. Three options could be considered for Yakima Avenue between N 1st and N 6th Streets (or N 8th Street depending upon the bypass system options): • Maintain the current street operation. Upgrade street operations to encourage more thru traffic and there- fore more business exposure. • Further downgrade the street operation to a local pedestrian and parking street. Maintain As Is. This option is the easy choice, since it requires no action. One change is highly recommended under this option as well as the next: Revise parking east and west of 2nd Street to allow spreading the thru traffic lanes to accommodate a center left -turn lane on the east and west approaches to 2nd Street. Left -turning traffic currently blocks thru traffic lanes and poses safety hazards. Yakima Avenue should be reclassified from a local street to a minor arterial between 1st and 4th Streets under this op- tion, since it currently operates as such. Upgrade Traffic Operations. Coordinate traffic signals along Yakima Avenue to improve non-stop thru traffic flow, and remove mid -block pedestrian crossings. This would reduce the delay (and perceived congestion) now experienced by motorists who are stopped at almost every signal; and - 21 - TC: 86274.01 traffic volumes are likely to increase as a result. The improved traffic signal progression would have a tendency to cause motorists to have less tolerance for pedestrian crossing interference which would cause them to fall out of the signal progression sequence. For this reason, it would, be desir- able to remove the mid -block pedestrian crossings under this alternative. Downgrade Traffic Operations. Convert Yakima Avenue from four and five traffic lanes to three traffic lanes between 1st and 6th (or 8th) Streets to make it function as a local street as it is now classified. Convert excess street width to angle parking on both sides to increase public parking supply and availability to businesses fronting along Yakima Avenue. Maintain and enhance the mid -block pedestrian crossings. Do not coordinate or progress signal operations so as not to increase driver expectations of "making the signals" from one block to the next. At 1st Street, revise the west approach on Yakima Avenue to provide a left -turn lane, one eastbound thru lane, and an east -to -south right -turn only lane. Provide a similar lane reduction scheme at 6th, 8th or 9th Streets (depending upon the selected bypass enhancement option described previously). Provide appropriate urban design ("gateway") improvements at these transition points to strengthen the driver perception of entering a local street, or diverting to avoid it. Provide center left -turn lanes on approaches to 2nd Street. The Lincoln Avenue/"B" Street bypass system has sufficient capacity to absorb any traffic diversion from Yakima Avenue that may occur under the downgrade option. The "upgrade option" would cater to the perceptions of businesses who feel that more traffic exposure will generate more business. It would also de- crease the public's perception of traffic congestion in the CBD. The "down- grade option" helps ease the public perception of parking shortages in the CBD, carries an urban design concept of truly pedestrianizing Yakima Avenue to its maximum potential, but likely will increase public perception of conges- tion and delay in the core of the CBD and therefore for the CBD in general. Merchant and public sentiment, supported by the City's economic consultant, lean toward maintaining or upgrading Yakima Avenue traffic operating capacity and integrity. -22- TG: 86274.01 Public Parking Signing Needs As will be discussed in the next part of this report, the Yakima Mali garage is considerably under-utilized by Mali customers. Except for the N 2nd Street public parking lot, other available public parking facilities are also under-utilized. Part of this problem is related to inadequate signing and driver information as to how to find public lots and Mall parking facili- ties. An improved "Mali" and public "P" parking signing program is desirable along the CBD arterial system. More direct guidance to off-street parking facilities can reduce excess circulation on the CBD Street system in search of on -street parking spaces, and lessen the perception of parking shortages. Other Issues and Options Some options have been proposed to convert portions of 3rd Street to pedestrian use only. The traffic consultant firmly believes that 3rd Street is an important north -south collector arterial necessary to the convenience of CBD internal traffic circulation. Therefore, closures of any portions of 3rd Street should be avoided. The Yakima CBD has evolved around a conventional block grid street system. Much of its business enterprise depends upon "drive -up exposure" and the on -street parking that the grid system provides. Those streets not re- quired for arterial traffic circulation use are still very much relied upon for local access to on and off-street parking facilities. Any considerations of street closures or vacations should be considered very carefully by the City and its CBD merchants. RECOMMENDATIONS Arterial Classification Plan A proposed arterial classification plan for the Central City area is illustrated on Figure 10. It incorporates recommended changes to the CBD thru traffic bypass systems as discussed further below. It reflects a new major (or possibly minor) arterial route to the Fairgrounds via "A" Street and -23- m C2 c m CO (AGGRESSIVE CBD DEVELOPMENT OPTION ;) NVId NOIIVCIJISSV10 1VIa31EIV Poq WOMB "1. 3aflDid • 1101 la. FRUITDALE ][7-UiriSHE-; im h�e N SUMMITVI EW' • • • AEK. PARK CMOOE 10 TIETON DR. •*4$ �iv�►1,_ lil Qciiii [ILE U M1M�veweE0..1'..01'11000 .v2in,p,pp8•_ 11:100 ^I�©u IiIeiR 1{ 1 . 11,r, ri-th NVB HILL oeo. oo (IFUTURE' 1Y llevee IM rl1 ,BLVD. `I I 111111 '� E nnnrn rnn n PACIFIC' � YtEEpwA AAeee0ef Il� co ct 2 0 TG: 86274.01 Fair Avenue connecting into S 10th Street. 6th Street through the East CBD is maintained as a major arterial, and south of the CBD it is upgraded from a collector to a minor. Yakima Avenue through the East CBD is upgraded to minor arterial status. 3rd Street will maintain its collector arterial status. In the West CBD, all street classifications remain the same as the current plan. However, it is recommended that Lincoln Avenue be upgraded from minor to major arterial west to 16th Avenue in recognition of its current traffic use and volumes. In the longer range future, Tieton Drive extension to Pacific Avenue over the BNRR corridor should be planned as a secondary east -west arterial route. It would help facilitate traffic flow between West Yakima and the Fairgrounds areas to help reduce thru traffic penetration of the CBD. CBD Street Use Plan A CBD "Street use plan" is illustrated on Figure 11. The idea of the plan is to promote the use of the Lincoln Avenue/"B" Street couplet and Walnut Street for east -west non -CBD (thru) traffic. 1st Street would cater to north -south thru traffic east of the BNRR, and 3rd/5th Avenues would carry traffic thru the west CBD. Yakima Avenue would serve CBD access from the east and west "gateway" routes, but would not encourage non -CBD thru traffic use. The local and collector streets would have a primary function to serve local business and parking access. All parking facility access drives should focus on these streets; direct access to the major and minor arterials should be minimized as much as practical. The local street grid should cater to customer search for business and parking access, with a minimum need to recir- culate via the major and minor arterial streets. To maximize CBD internal circulation, the existing local street grid should be maintained; closure of any street should be approached with extreme caution, and avoided except for major economic advantage to the CBD. It is suggested as a low priority option that E "A" Street and Chestnut Avenue be converted back to two-way operation to help promote circulation ease in the customer search for parking and business access. These streets currently carry relatively light traffic volumes; they do not serve any arterial func- tions, and they would operate satisfactorily under two-way flow. The one exception is the section of "A" Street between 3rd and 4th Streets. It may -25- J TO FAIR GROUND JL North LJtJ •n •••••00 • •1•0. * BYPASS ROUTE EAST TRANSITION OPTION 3. YAKIMA CENTRAL BUSINESS DISTRICT MEW NomminumommannommummiNUMENI FIGURE 11 CBD STREET USE PLAN (AGGRESSIVE CBD DEVELOPMENT OPTION) MOP -26- immainliIMONNO TG: 86274.01 not be possible to convert "A" Street to two-way traffic flow until such time as access to the mall parking garage is revised. It is noted that conversion to two-way operation will involve considerable signing and signal modifica- tions. Specific Issues and Options -- Six Year TIP 1. Implementation of the CBD Bypass System West Transition plan illustrated on Figure 4 is recommended in conjunction with development of the "Seventh Avenue Commons" urban design proposal. Suggested channeliza- tion/lane delineation modifications along Pierce Avenue north of "B" and CBD bypass signing aids should be included in the current 6 -year TIP (Transportation Improvement Program). 2. Implementation of the CBD Bypass System East Transition Option 3 as illus- trated on Figure 6 is recommended for 6 -year TIP program action. Included in this plan is the addition of a third westbound lane on Yakima Avenue from the north -to -east I-82 ramp merge point to a "drop" at N 8th Street. Also included in this plan is signalization of the Yakima Avenue/ 9th Street intersection; and elimination of the N 8th Street pedestrian island to allow 3 -lane operation of N 8th Street between Yakima Avenue and Lincoln Avenue (2 lanes northbound and 1 lane southbound). Parking on the west side of 6th Street would need to be eliminated to provide two southbound traffic lanes; and signal timing adjustments would be needed along 6th and 8th Streets to favor major direction traffic flow progression. Traffic bypass route signing improvements to facilitate the Option 3 plan should be included as part of these programmed improvements. 3. CBD -Fairgrounds route signing and enhancements along lst Street, 6th Street, and Pacific Avenue should be included in the current 6 -year TIP (see Figure 9 and related text). 4. Directional sign "blazing" along the CBD arterial streets to Yakima "Mall" and to public "P" parking facilities should be detailed out by Public Works and added to the 6 -year TIP. -27- TG: 86274.01 5. The upgrade/downgrade/no action alternatives for Yakima Avenue through the east CBD should be carefully considered by the City and its CBD mer- chants. If the "upgrade" option is selected, associated changes should be detailed by Public Works and included in the 6 -year TIP. These improve- ments would include adjustment of signal timing and coordination to im- prove non-stop thru traffic flow, and removal of the mid -block pedestrian crossings. 6. Under any selected option for Yakima Avenue in the east CBD, it is recom- mended that the angle parking on Yakima Avenue in the vicinity of 2nd Street be converted to parallel parking and the approaches to 2nd Street by redelineated to provide center left -turn storage pockets. Long Range Plan Improv nts 7. Expand Pierce Avenue to four lanes from Summitview to W "B" Street as illustrated on Figure 4. Revise lane delineation along Summitview to provide free flow right -turn movements to and from Pierce Avenue. Modify 7th Avenue and vacate some Street portions as illustrated on Figure 4 in conjunction with development of a City Park ("Seventh Avenue Commons" urban design concept). 8. Convert 8th and 9th Streets to one-way operations between Walnut and Lincoln as illustrated on Figure 7 (bypass system east transition Option 4). This should be done only if the single family residential uses along the 9th Street corridor are expected to transition into multi -family or commercial uses. 9. Extend Fair Avenue northerly under Yakima Avenue and curve westerly into "A" Street and 8th and 9th Streets. Provide eastbound ramp from Yakima Avenue to Fair Avenue, and provide complimentary westbound ramp if permissable by the WSDOT. Close Chestnut Street west of Fair Avenue (see Figure 8 for illustration). 10. Improve Fair Avenue to a four -lane minor arterial from. Yakima Avenue to Pacific Avenue, and enhance per urban design consultant recommendations as a CBD -Fairgrounds connection. -28- PART II - PARKING CURRENT CONDITIONS Parking Supply TG: 86274.01 The Yakima CBD has about 14,000 parking spaces within the study area shown on Figure 12, excluding off-street residential parking. About 5,000 of these parking spaces are public parking provided on public streets within the CBD, and in six off-street public parking lots in the CBD core area (450 spaces). The balance of 9,000 parking spaces are provided on private off-street parking lots throughout the CBD. This parking inventory was identified from aerial photos flown on October 7, 1987; and the public portion was verified by ground surveys conducted during that month. A general breakdown of this parking supply by various sectors of the CBD is as follows: Public Private Total West CBD (west of BNRR) 2,000 3,900 5,900 CBD Core Area (Between BNRR and 6th Street) 1,650 4,000 5,650 East CBD (East of 6th) 1,350 1,100* 2,450 Totals 5,000 9,000 14,000 * Includes about 400 parking spaces available to the Yakima Convention Center. Overall Parking Utilization As part of the CBD traffic data collection program, inbound and outbound traffic counts were collected at 14 CBD arterial access points (see Figure 12). Traffic at these 14 locations was estimated to reflect about 85 percent of total traffic moving into and out of the CBD; the data were expanded accordingly. By subtracting outbound traffic counts from inbound counts, an estimate of total vehicle accumulation within the CBD was obtained -29- 4,, PUBLIC OWNED 4 PARKING FACILITIES PRIVATELY -OWNED PARKING FACILITIES "<)""fTRAFFIC "GATEWAY" COUNT LOCATIONS divessessoir SI stitEtt e North —J 41OUTX 111111 111 1111111 !I? • Mil illt / illt 1/.----, 1-2,-71-7. . F1';IrFgr YAKIMA CENTRAL BUSINESS DISTRICT FIGURE 12 CBD OFF-STREET PARKING FACILITIES -30- 4.3•••=13•14111010111.1. T1RANSPC) crro‘ir •••••••••••••••••••••••ftema.•••••••ffonamilIVIIIIIMMINIIIIONI TG: 86274.01 for each hour of the average October weekday. The results are illustrated on Figure 13. Vehicle accumulation within the CBD increases rapidly between 7:00 and 9:00 AM as employees travel to work. It continues upward to a high at around 11:00 AM as shoppers and visitors enter the CBD. This peak accumulation holds relatively constant between 11:00 AM and 3:00 PM as shoppers and other visi- tors come and go. Between 3:00 and 6:00 PM, parking demand falls off rapidly as both shoppers and employees exit the CBD. Between 6:00 and 8:00 PM a parking "plateau" is reached as dinner patrons and evening shoppers offset the exodus of daytime employees and visitors. Then parking subsides to a low around 3:00 AM. Of the mid-day peak of about 7,000 vehicles within the CBD, it is estimat- ed that about 6,000 are simultaneously parked, and the balance are circulating on the street system. Considering a supply of about 14,000 parking spaces less than half of the total available parking supply is utilized at peak time on an average weekday. 7000 6000 O 5000 a4000 V U 3000 H 2000 C=1 1000 0 4 tt7 Figure 13 VEHICLE ACCUMULATION WITHIN CBD BY HOUR OF DAY I 1 CD d ,-1 .-4 4 C0? .-1 CV CO tf' b Cb t•- CQ CO 0 HOUR OF DAY - 31 - cg TG: 86274.01 Public Parking Utilization Public parking utilization within the CBD was monitored on four days during October and November 1986: Saturday, October 4,; Tuesday, October 7; Saturday, November 22 (before Thanksgiving); and Friday, November 28 (day after Thanksgiving). The results of these surveys are summarized on Figures 14, 15, and 16. Public parking utilization was stratified block -by -- block into four ranges, based upon the peak parking accumulation at any time of the day. These ranges and their significance are described as follows: • 85 to 100 percent occupied -- full or perceived as difficult to find parking by the general public. • 65 to 85 percent occupied -- minor difficulty in locating a parking space, but of potential future concern. • 50 to 65 percent occupied -- no difficulty in locating a parking space, but of planning interest. • Less than 50 percent occupied -- of little concern for the planning horizon. Peak parking accumulation in the Yakima CBD occurs between 11:00 AM and 3:00 PM, reflecting the dominant retailing characteristics of the CBD. On Saturday, October 4 (the only day of full CBD survey), only 40 percent of the entire CBD public parking supply was utilized during the times of peak accumu- lation. Overall CBD public parking supply appears to be more than adequate. However, parking adequacy varies by location within the CBD. In the west CBD, near capacity conditions were encountered in a few scattered locations, as can be seen on Figures 14 and 15. In the East CBD, capacity or near -capa- city utilization of public parking appears to occur in the CBI) core area surrounding Yakima Mall. CBD Core Area For purposes of this analysis, the "CBD Core" is defined as the 12 -block area of the CBD bounded by 1st Street, E "B" Street, Naches Avenue, and -32-, C) mwag ris"w4 Col9rnCrn Avaunlvs NOILVZIliLn ONI,IUidd mend 080 VI INVA i. 3IJ fl d 310 u P 4 C- 1 z o• OR oLC) LC) CO ko 0 Lt") J F- // Jjy 6. OPEL) l.S, 001. aIL u =1 1r4,21 nip Ltsja,*(7-1 RN -0,r), 1 samii r /G2 oIc Col 0/3 acC UMW ..dyg ICC .C.4 403 14. w North UTILIZATION: 85-100% 65-85% 50-65% EJ UNDER 50% 65. t 8•m mslt#s YAKIMA CENTRAL BUSINESS DISTRICT FIGURE 16 ¥AK MA CBD PUBLIC PARKING UTILIZATION PP DAA! 1 1 /28586 -35- TG: 86274.01 E Chestnut Street. The "CBD Core Area" includes a one -block "fringe tier" around the core. It is, therefore, a 30 -block area bounded by the BNRR, E Lincoln Avenue, 6th Street, and E Walnut Street. The CBD core and fringe area are illustrated on Figure 17. The "CBD core" has the highest density of land use in the Yakima CBD. Building floor area by general land use is summarized in Table 1. Table 1 ry of CBD Land Use Land Use Office Retail Public Service Other Totals CBD Core (12 blocks) CBD Core Area (30 blocks) Total CBD 361,400 653,400 206,600 115,400 163,200 1,500,000 555,200 911,000 781,300 1,694,300 329,400 339,800 265,100 778,100 249,400 1,039,300 2,180,400 4,762,500 The "CBD core area" (30 blocks) includes 46 percent of the entire commer- cial building area within the Yakima greater CBD (approximately 130 blocks). The "CBD core" (12 blocks) contains 69 percent of the commercial floor area within the "CBD core area", or about one-third of the entire CBD building floor area. Parking supply and utilization was evaluated in detail in the core area. Figure 17 illustrates a block by block summary of parking supply and utiliza- tion on an average weekday (Tuesday, October 7, 1986). This weekday is called "average" since retail shopping center studies tend to show October sales and traffic as the average month of the year. During the month of December, average retail parking demand is 50 percent higher. December Saturdays, and the last weekdays prior to Christmas can range up to double the traffic and parking demand found on an "average weekday". -36- CDB CORE (12 BLOCKS) SUPPLY UTIL, % PUBLIC T4 57L PRIVATE TOTAL 2,79 1 CBD CORE AREA (30 BLOCKS) SUPPLY UTIL. % PUBLIC PRIVATE DWI° 144? -19g6 040 NCOLM AVE. 38 74',' 67 OL 7. TOTAL s;t4z lip 51 North E "B" St. 1111211E311:?3 MIN Go 57 31 9d 77 B4 , 37- 40 15 /14 5z 47 nr3 ,6-34 YAKIMA AVE. 5. 44 44U 258 0,7 z E. LHESTNUT St.1 7 2.5" 531 47 5-7 YAKIMA CENTRAL BUSINESS DISTRICT comiaanamaaftual. FIGURE 17 OSA CORE A EA PAR SUPPLY AND DEM N TUESDAY 10! 7 /56 .37 G nniugesos..1310.22Z1M. SPO @row bvaressaillOmmagem• TG: 86274.01 From the information shown on Figure :L7, and noting the summary blocks at the top of the figure, the following observations can be made: • Total available parking supply is about double the parking utiliza- tion on a typical weekday. This was observed for both the I2 -block core as well as for the entire 30 -block core and fringe area. o Public parking in the 12 -block core is 68% utilized on a typical weekday, as compared to only a 45% utilization of _private parking supply. This compares to 58% and 49% respectively for the entire 30 -block core area. Mall garage use was 40% on a typical weekday, contributing largely to the lower proportional use of private park- ing. • Public parking utilization on blocks east, west, north, and on or surrounding Yakima Mall reached levels close to or exceeding 85 per- cent utilization -- the threshold of perceived parking shortage. Yet more than half of available private parking on these blocks was unutilized. Based upon the summary of CBD building areas shown on Table 1, an estimate of potential "design level" CBD core area parking demand was prepared -- assuming 95 percent occupancy of all existing buildings, and assuming an average December weekday retail parking demand. This weekday "design level" parking demand is summarized in Table 2. Given this assumed full use of all CBD buildings. This '°design level" of parking demand is expected to be ex- ceeded on only a few days of the year immediately prior to Christmas. On weekend days, the parking "demand" associated with office, public buildings, and other employment oriented land uses drops to nearly zero. This leaves a large proportion of weekday parking demand available to the sur- charged retail and service customer parking demand on weekend days and holi- days. The CBD core area parking supply is considered to be more than adequate to meet weekend day parking needs. - 38 - TG: 86274.01 Table 2 CBD Core & Fringe Area Weekday "Design Level" Parking Demand (30 -Block Core Area) Land Use Employee Customer Total Office 700 100 800 Public 400 150 550 Other 300 50 350 Subtotal 1,400 300 1,700 Retail 500 1,600 2,100 Service 200 400 600 Total' 2,100 2,300 4,400 Findings relevant to this "design level" parking demand estimate are as follows: • Even if all existing CBD buildings averaged 95% occupancy or better on a pre -Christmas weekday, only 78% of the total 30 -block core area parking supply would be utilized. However, parking demand in the 12 -block core would exceed its total supply. • On weekdays, employee parking demand is nearly equal to customer and visitor parking space needs. • Though 75% of the 30 -block core area parking demand is generated by the 12 -block core buildings, parking utilization is about equal in both the core and core fringe areas. -39- TG: 86274.01 THE PARKING PROBLEM/CHALLENGE Surveys have indicated a strong public "perception" of parking shortages in the Yakima CBD, primarily in the high density retail core area in the vicinity of Yakima Mall. On the other hand, this core area has nearly twice as many parking spaces than are utilized on a typical weekday. Hence, the parking "problem" is not one of parking supply shortage, but of parking facil- ity location„ access, and convenience to businesses served. This has resulted in excess demand for the use of public parking in the immediate vicinity of the mall, whereas the mall garage and other public and private parking facili- ties a block or more removed from the mall are under-utilized. There is also a perceived shortage of long -duration parking available to CBD core area business employees. Nearly all public parking within the core area is limited to two-hour parking duration to maximize its availability to business customers. It is estimated that up to 20 percent of these spaces are utilized by employees who move their cars periodically during the business day to avoid overtime citations. Other observations on CBD core area parking supply and utilization are as follows: • Yakima area residents exhibit a strong desire for storefront parking convenience. unfortunately most "store fronts" are along the public streets providing the traffic approach which have limited on -street parking. Off-street parking that does not "front" on the retail businesses they serve is less easily identified by the CEID core shopper and visitor as available parking. • Much of the privately owned parking provided for public customers use displays signs restricting its use to specific stores or buildings. This intimidates the multi -store shoppers from its use, and causes a need to move vehicles from one private lot to another in the course of a multi -store shopping trip. This adds to customer frustration and perception of parking shortage. - 40 - TG: 86274.01 • The private parking facilities that do not restrict use to any spe- cific business or group of businesses are generally privately spon- sored parking business enterprises that must charge for parking to be economically viable. Parking charges appear to have some effect on parking choice when free parking alternatives are available. • To compete with outlying retail centers which provide free parking, the City and its CBD merchants several years ago agreed to make nearly all public parking free of charge to customers and visitors (as it is elsewhere in the CBD). This was accomplished by allowing "two-hour free parking", and imposing fines upon those who exceed this limit. The two-hour limit was imposed to discourage use of public parking spaces by employees who park all day. • The preceding action has by policy eliminated free public parking from availability to office and retail business employees for all -day parking use. Many buildings provide free off-street parking for restricted use of building tenants and visitors only. Others, such as the mall, provide convenient paid parking for building tenant employees. In fact mall garage parking, with monthly parking charges are available to employees of any business that find it convenient, and who are willing to pay for secure covered parking. • Those employees who are not provided all -day parking facilities, or who are not willing to pay for available private parking spaces, are those who perceive a CBD parking shortage -- in effect, a shortage of free public parking. Some choose to park in unrestricted free public parking areas outside the CBD core. Others choose to do the "two- hour shuffle" by moving their vehicles periodically amongst the two- hour free public parking spaces. In either case, the choice leads to inconvenience and irritation with the parking program. • The City land use codes do not require development of new off-street parking supplies as part of the permitting requirements of new build- ing projects. Though new building developments or renovations will generally provide some off-site parking spaces in order to make the - 41 - TG: 86274.01 project "marketable", such new spaces generally fall short of the created new parking demand, and are likely to be restricted to use by the new building tenants and customers only. • There are little or no signing or driver information aids identifying off-street parking facilities and access routing within the CBD. There is a tendency for the less frequent visitor to enter the CBD core area via Yakima Avenue, and then begin an unguided search for parking. Directional signing to the mall garage is one obvious example where driver guidance would be effective. Driver guidance to the myriad of small off-street lots, including the public lots, presents a bigger challenge. • Yakima Mall contains about 75 percent of the reported retail floor area within the 12 -block CBD core, or about 40 percent of the total building floor area. On a typical weekday a 600,000 gsf regional retail center is expected to generate a peak parking demand (between 11 AM and 3 PM) for between 1,200 and 1,800 parking spaces. Yet peak occupancy of the 1,200 -space mall garage is estimated at only about 500 spaces on a typical weekday. This indicates that the majority of mall users park in surface level public and private spaces surround- ing the mall. This places an excess demand on surface parking facil- ities that are needed to serve other businesses in the mall vicinity. In summary, the parking challenge to the City and its CBD core business community is not so much one of providing more parking to serve existing businesses, but one of more effectively utilizing the vast supply of public and private spaces that are already available. A parking management strategy and program is needed for the CBC core area. More common sharing of parking facilities, cost pricing strategies, and driver information and education programs are all parts of a parking management program. Another focus of CBD core area parking planning is the development of new parking supply as further development occurs. This implies review and revi- sion of the CBD parking codes, and innovative public/private partnerships for providing for future increases in parking demands. -42- TG: 86274.01 STRATEGIES AND PARKING MANAGEMENT OPTIONS In light of the foregoing survey findings and general observations, there are a number of actions that should be considered by the City and its CBD merchants and landowners. The vast majority of parking concerns focus on the older CBD core area. However, some of the options discussed below are tar- geted at the CBD as a whole. The options are structured around five general areas of action: • Development of a CBD core area parking management association. • Parking duration, control and fee strategies. • Strategies for improving CBD core area employee parking needs. • Expansion of public parking supply and land use code revisions to enhance CBD public/private parking supply. • Driver guidance and information programs to find major CBD destina- tions and associated parking facilities. CBD Parking Management Association The City and its CBD landowners and merchants should consider a coopera- tive parking management program for the 30 -block CBD core area, shown pre- viously on Figure 17. There are two general approaches that can be considered: • Informal voluntary cooperative program, or • Formal CBD parking association. A primary objective of either approach is to make all parking, whether public or private, that is now designated for visitor and customer use avail- able to visitors and customers of all CBD businesses. Most private lots are currently signed "parking for customers of business X only", followed by tow - away threats. This intimidates parkers that may have a multi -business -43- TG: 86274.01 shopping objective, causes auto trips from one parking lot to another, causes significant under -utilization of private business -specific restricted lots, tends to focus customer attention on the limited public parking supply, and leaves an image in the customers' minds that CBD parking is a problem. Over 50 percent of all private parking within the 12 -block CBD core is currently unutilized on a typical weekday. Another objective of a parking management program would be a relatively uniform policy on parking charges and parking duration. If any customers could park in designated visitor space, pubic or private, and expect one or two hours of free parking, the search for free parking would be largely elimi- nated. A better utilization balance would be gained between public and pri- vate parking; and the public perception of parking shortages within the CBD core area would be reduced significantly. An informal voluntary cooperative rogram infers that all CBD core area landowners and merchants subscribe to and enact these basic program objec- tives. If any one landowner or merchant finds that his/her customer parking is excessively utilized to his/her disbenefit, restrictive signing could be reinstalled. An owner/merchant committee or board could be created to hear and react to such complaints. Care must be taken to verify that the problem is real; otherwise the advantage of the program could be slowly eroded away. The formal CBD merchant parking association approach would result in a non -project corporation to manage and administer CBD core area parking use and regulation. All or some of all private parking would be "leased" to the corporation which would provide management, maintenance, security, and enforcement activities. The mall garage may be a major exception because it is such a large business venture in itself. However, hopefully its owners would voluntarily participate in the CBD parking management program The corporation would be directed by an elected board or commission who set uniform policies as to use management, parking charges, maintenance, and enforcement. It would collect fees from landowners, merchants, and/or parking users to offset its costs. The City could be part of the association, providing the parking enforcement element at public expense. However, it would need to be empowered by landowners to regulate parking on private property. These approaches to parking management have been enacted in many small cities throughout the state, and in some business district subareas of the -44- TG: 86274.01 larger cities. The primary objectives are to minimize individual business owner costs in dealing with parking management problems. The parking associa- tion with a few employees can manage thousands of parking spaces in a uniform fashion very efficiently. Individual landowners managing 10 to 100 spaces each are likely to find their collective costs of signing, maintenance, fee collection, and enforcement much higher than could be achieved through a parking management association. Parking Duration and Types of Control The Yakima CBD is the major business center of an urban area of between 150,000 and 200,000 population. Some useful statistics for CBDs within urban areas of this size are provided in Table 3. These data indicate that up to 70 percent of all CBD trips park for less than two hours; 38 percent park for less than one hour. The average parking duration for a shopping purpose trip is 1.3 hours; and personal business trips average less than one hour in dura- tion. It is estimated that mall related parking durations average closer to two hours; whereas parking related to other CBD retail businesses average less than one hour in duration, but may average up to 1.5 "parks" per CBD visit (driving from store to store). Table 3 CBD Parking Characteristics For An Urban Area of 150-20001, Population Parking Duration Parking Duration by Trip Purpose Turnover Rates* Time (Hours) % Total Purpose Hours % Total Type Rate 0.0-0.5 0.5-1.0 1.0-2.0 2.0-5.0 Over 5.0 38 Shopping 1.3 15 Personal 17 Business 0.9 15 Work 4.3 15 Other 1.2 Total/Avg 100 21 Curb: Metered 8.1 34 Posted 3.1 26 Special 4.4 19 Lot/Garage 1.6 2.1 100 Source: Transportation and Traffic Engineering Handbook, Institute of Trans- portation Engineers, Second Edition, 1982. * Number of uses per day per space between 10 AM and 6 PM. -45- TG: 86274.01 The "turnover rates" in Table 3 indicate that metered curb parking is the most effective use of public parking spaces in terms of the number of custo- mers served. Metered parking can be very selectively regulated from four-hour durations in fringe areas down to 15 -minute maximums in front of high turnover types of facilities such as banks. It is also the easiest form of parking regulations to enforce -- when the red flag is up, time is expired. If metered parking is viewed as a control mechanism rather than a revenue genera- tor, it can be operated on pennies or nickels to avoid user costs. A short- coming of metered parking is that it can be abused by long-term parkers by "meter feeding" on a periodic basis, unless enforcement also includes vehicle tire "chalk marking" procedures. In 1985 the City of Yakima and its CBD merchants opted to change from metered parking to "posted time limits" for curb parking and public lots. Parking is free and regulated by signs permitting up to two hours of parking duration. Enforcement is generally conducted by "chalk marking" vehicle tires at regular intervals (e.g., hourly). This form of enforcement in effect allows an extra half-hour of "grace time" on the average. Since posted park- ing is generally less tightly regulated than metered parking, parking turnover rates tend to be much lower than for metered parking, as shown in Table 3. In other words, each public parking space serves fewer CBD customers and visitors per day. The off-street public lots also provide two-hour free parking, regulated by sign posting. With the exception of the 2nd Street lot north of Yakima Avenue, all other public parking lots were found to be under-utilized during typical weekdays. Options. It is clear from the parking duration data shown in Table 3 that two-hour parking durations are needed to satisfy nearly all non -work purpose parking needs. On the other hand, a one-hour parking limit would satisfy up to 70 percent of the non -work purpose trips. The City and its CBD merchants and landowners may wish to reduce public parking duration limits to one-hour in the very high demand areas immediately surrounding Yakima Mall, including the 2nd Street public parking lot. This would satisfy the large majority of retail customer parking needs; and it would increase parking turnover rates, providing a greater frequency of parking opportunities for the majority of trips which are satisfied by one-hour parking. It would also virtually elimi- nate the employee "two-hour parking shuffle" in this high retail customer demand area. -46- TG: 86274.01 The longer duration customer and visitor parkers would be forced out a block or so further from the centroid of parking demand (which is the vicinity of 3rd and Yakima Avenue). Since these users are more likely to be Mall related shoppers, this action would also tend to transfer more Mall shopping trips to the Mall garage. The Mali garage offers unlimited parking duration, albeit Mall parking is not free. Another option is to reduce the free parking time allowance in the 2nd Street public parking lot from two hours to one hour. Free parking would be comparable to the one-hour on -street option above, but duration would not be a limiting factor. The 35 percent or so of non -work purpose parking demand that requires more than one hour of parking time could have that option by paying for time in excess of one hour. By placing no maximum on extra hour parking charges, all day employee parkers would find the lot equally or more expensive than other private pay lot alternatives. This same option could be applied to the other public off-street parking lots. The option would be subject to a review of the joint funding agreements that were used to construct the lots. However, it is likely that those who participated in LID assessments for the lots would agree that the one-hour of free parking would satisfy the spirit of those agreements, and that substitut- ing fees for duration limitations may better serve their overall parking objectives. Parking Fees Within the 30 -block CBD core area, the amount of surface area dedicated to parking use is nearly equal to the sum total of building floor area that is served by the parking. This is a tremendous dedication of land area to non- economic productive use if all parking were to be provided for free. There is also a considerable capital and maintenance cost associated with the construc- tion and maintenance of parking facilities, particularly for parking struc- tures. There is no such thing as free parking. It is either subsidized by the property use served, by the user through direct parking fees, or by the general public through City supplied free parking. Subsidy by properties served is derived through rent ratess or by direct tenant subsidies -- such as paying for employee parking .r customer parking validation. -47- TG: 86274.01 There is a wide diversity of opinion amongst CBD merchants and property owners as to parking economics. The range is from free parking for all to paid parking for all. The middle is for free parking for retail customers and paid parking for employees. The current public parking management program in the CBD core area reflects this latter philosophy. The parking management philosophies of some building owners who provide free parking for all emplo- yees and customers represent the one extreme, presumably subsidizing parking through higher building rent. The private parking facility operators reflect the opposite extreme -- they must charge all users to make parking ventures economically viable. Unless the City and its general public are willing to subsidize all CBD parking, private parking suppliers are necessary for the CBD. If private enterprise is to provide a significant proportion of parking needs within the CBD, paid parking is a fact of CBD economic life. Private suppliers of public parking, such as the Diamond lots, have no alternative to parking fees. Since 70 percent of CBD parking use is short duration, they have little choice of providing free parking of any duration. The Mall parking garage may have more flexibility, since it is associated with a major retail center. It currently charges parking rates of $1.00 for the first hour or part thereof, and $0.50 per hour thereafter, up to $3.00 per day. It also offers discounted parking rates for monthly paid employee park- ing. Options. Since metered control of on -street public parking was eliminated only a few years ago, it is unlikely that paid use of on -street parking will be reinstated within the CBD core in the near-term future. On the other hand, the options presented above to reduce parking duration to one hour in the Mall vicinity combined with paid use of the public parking lots beyond the first hour may provide a revised condition against which Mall parking operators can measure their parking management policies. The revised public parking manage- ment strategy would tend to increase Mall garage parking use by the 1+ hour parkers. It is suggested that the Mall parking entity consider providing a revised parking fee structure that provides one hour of free parking, and then an hourly fee structure. It is fully recognized that this could mean that up to 50 percent of the parking structure users may be lost from the needed revenue program for the parking garage. The option to recover these revenue losses is -48- TG: 86274.01 a rent surcharge to Mali tenants. This would impact the vast number of small shops. However, it would likely not impact the major anchor tenants who now subsidize short duration parking through validation programs. Long -Duration Employee Parking An all day employee -parked vehicle usurps the equivalent of three to eight customer uses of a parking space. Therefore, it is understandable that the City and its CBD merchants have regulated public parking in the core area to discourage long-term employee parking use. There is an abundance of off- street private pay parking supply to accommodate all CBD core employees -- if they are willing to pay for it. However, the locations of private pay lots are not convenient to all CBD businesses. By inspection of the parking utilization data on Figure 17, it can be noted that there are many blocks within the CBD core area where public parking is less than 50 percent utilized. An option is available to convert some public parking back to long -duration parking use. Selecting such locations, however, may be difficult depending upon reactions of the "fronting" busi- nesses. If any curb parking is converted back to unrestricted use, such spaces should be metered so as not to unduly compete against off-street pri- vate lots which must charge for parking to be viable. This would require installation of six -hour meters with parking rates of up to 500 per hour, deregulated to free parking after 3:00 PM on weekdays and on weekend days and holidays. There is also an option to allow long -duration parking in some of the public off-street lots that are currently under-utilized. Consistent with options presented above, this could be accomplished by installing coin boxes and numbered spaces in the lots, allowing the first hour of parking fee, and charging $.50 per hour each hour thereafter. Expansion of Public Parking Supply Another option to the City and its CBD core area landowners is to expand public -owned off-street parking facilities. If this option is pursued, the following locations should be emphasized: -49- TG: 86274.01 • The N 2nd Street parking lot north of Yakima Avenue which is near the centroid of retail parking demand, and The S 3rd Street parking lot south of Yakima Avenue which is near the centroid of retail parking demand, and which also serves the cultural sector of the CED centered around the Capitol Theater. Both locations would require development of capital intensive parking structures. These will require innovative public/private partnership pro- grams. These are currently the two most significant public parking lots within the CBD. Their expansions would provide obvious public parking desti- nation points for special driver signing and guidance programs discussed below. CBD Land Use Parking Code The City of Yakima Land Use and Development Codes do not include specifi- cations or requirements for the provision of private off-street parking within the CBD. It is presumed that new developments will supply private parking suitable to meet their market demands; but this is not currently guaranteed. CBD parking supply can currently meet parking demands, given some program in the core area to improve parking management as discussed above. However, public parking within the CBD cannot be relied upon alone to service any significant amount of new development within the CBD. A case in point is the development proposal for the south portion of the block bounded by Yakima Avenue and 2nd and 3rd Streets. Development proposals envision construction of up to 100,000 square feet of new building floor area for office and/or retail uses. This site lies within one of the highest demand areas of the CBD for use *f public parking. To add to parking demand in this area without adding to parking supply would be unacceptable. Yet that is an option that could occur under existing land use codes. It is suggested that the Land Use Code be modified to add minimum parking supply requirements for CBD development or redevelopment projects. The requirements should be flexible to allow inclusion of available on -street public parking as part of the minimum parking supply requirements. It should also provide allowances for "shared us& parking. for example, office uses -50-- TG: 86274.01 generate peak parking demand levels at 10:00 AM on working weekdays; whereas retail centers generate peak parking demands on weekend days and non -working weekdays. Restaurants, theaters and hotels generate peak parking demands after 5:00 PM when office parking approaches minimum levels. TRANSPO recommends minimum parking requirements for a few of the more common CBD land uses as shown in Table 4. Parking requirements are stated in terms of rates or ratios; in most cases the ratio applies to each 1,000 square feet of gross building floor area. Spacious malls and lobby areas can be deducted from the building floor area for purposes of calculation. Rates are supplied for two cases: 1) no shared parking potential, and 2) maximum shared parking potential. The "maximum shared" parking ratios could be applied in the CBD core where there is a large mix of all of the uses shown in Table 4 and a large amount of shared parking. On the other hand, there is a relatively low amount of avail- able on -street public parking. Therefore, further reductions of new develop- ment project parking requirements relative to on -street parking supply would be minimal north of Chestnut in the CBD core. It would be useful for the City to procure and include by reference a document entitled: Shared Parking, ULI - The Urban Land Institute, Washington DC, 1983. This is an excellent guide for estimating shared parking requirements. Within the CBD core area, new development parking supply requirements should be integrated with the two major public parking modes suggested in the preceding section. Rather than providing new on-site private parking, devel- opments in this sector of the CBD should be provided economically viable options to contribute to public parking structures. Elsewhere in the CBD, parking requirements may tend more to the "non - shared" parking ratios. However, in most other areas of the CBD there appears to be a much higher availability of currently unutilized on -street public parking. The code should allow all on -street parking on curb faces immediately abutting a proposed project to be counted as part of its parking supply requirements. The code should further allow possible inclusion of up to 50 percent of all on -street parking supply within a one -block radius of the site in those areas of the CBD where the parking surveys found less than 50 percent utilization (see non -highlighted blocks on Figures 14 and 15). In this latter case, a project proponent for a large project may be required to conduct a parking utilization survey if on -street parking supply should be used to claim more than 20 percent of the total calculated site parking requirements. - 51 - Mini Table 4 Parking Supply Requir nts TG: 86274.01 Land Use Parking Supply Ratios Non -Shared Max. Shared General Office Medical, Dental and Governmental Office Retail Facilities Restaurants Hotels and Motels Hotels and Motels - Restaurant with Lounge Convention Facility Theater Facility 4.0/1,000 gsf 5.0/1,000 gsf 4.0/1,000 gsf 20.0/1,000 gsf 1.0/guest room N/A 30.0/1,000 gsf 0.25/seat 3.0/1,000 gsf 4.0/1,000 gsf 3.0/1,000 gsf 10.0/1,000 gsf 0.5/guest room 10.0/1,000 gsf 15.0/1,000 gsf 0.0/seat Driver Guidance and Infirition As noted above, Yakima CBD customers and visitors are currently provided with little information as to destination points and parking facilities within the CBD. A major destination is the Yakima Mall. The Capitol Theater and County/City government buildings are other current major destinations, as are hotel/motel and convention facilities. Ma,or public parking nodes should also become part of driver guidance signing and information programs. The primary CBD gateways are Yakima Avenue and lst Street. Signing should be provided to the above major public and private destination points. Within the CBD core area, major parking supply locations also need to be identified with directional signing. The M 2nd and $ 3rd public lots should become the focus of public parking destination points. The Mall garage access guidance should also bec e a vital part of parking guidance programs. By emphasizing the Mall garage, the largest single 'public" parking facility in the CBD core area, a significant improvement can be accomplished in CBD core area parking management, and reducing public perception of parking supply shortages. Adjustment of parking duration and fee structures as suggested above all combine with driver guidance to improve the CBD parking image. - 52 RECOMMENDED PARKING GEMENT PRO TG: 36274.01 Parking supply needs outside the core area of the Yakima CBD primarily focus upon future supply as a result of land development and redevelopment projects. It is recommended that the CBD land use/parking code be amended to require increases of private off-street parking supply with each development project, as outlined above under "CBD Land Use/Parking Code". Within the east CBD core area, parking is a more complex issue. The first and foremost recommendation is that: I. The City and the CBD core area landowners and merchants develop a mutually beneficial parking management coalition or association. This can be either an informal voluntary coalition, or a formal parking association as outlined above. The primary factors in CBD core area parking management are parking dura- tion controls and parking fees. The following actions are recommended for public parking facilities: 2. That the current "posted time limit" parking policy be maintained in general for on -street public parking supply. 3. That on -street parking time limitations be reduced to one hour in the immediate vicinity of Yakima Mall. Note: The practical limitations on enforcing "posted" parking control provide a liberal interpretation of one-hour limits before overtime citations are issued. 4. That the five public parking lots within the CBD core be numbered and provided with coin -fed parking fee collection boxes to collect park- ing fees as follows: First hour free, $0.50 per hour thereafter with no maximum cutoff amounts. Parking free after 5:00 PM and on week- ends and holidays. Parking fee rates to be escalated in concert with private parking facility rates over time. -53- TG: 86274.01 These parking policies will result in a higher "turnover rate" for public parking facilities in the Mali vicinity, and a shift of parkers who require more than one hour of parking time to the Mall garage and other paid parking facilities. To compliment these revised public parking policies, it is recommended that the Mali parking entity consider the following action: 5. Adopt a fee parking structure that provides one hour of free parking with production of a sales receipt in any amount from a Mall mer- chant. 6. Develop post -one hour rates that will ensure reasonable capture of market demand relative to post -one hour public parking rates. 7. Maintain a reasonable and 'marketable' monthly employee parking rate structure that will not be competed with by public parking facilities. 8. Develop recovery of ine-hour free parking revenues through "parking validation" by Mall tenants, or by nominal rent surcharges. It should be recognized that recovery thr ugh rent surcharges may take time to effect. Finally, it is strongly recommended that a driver guidance program of signing to major parking facilities be provided along the CBD street system. Primary targets are the mall garage, the 2nd and 3rd Streets public lots, and City and County visitor parking locations- Other lots to the rear of build- ings should also be identified by "P signs along the streets fronted by the business. -54- CITY OF YAKIMA TRANSIT SYSTEM CONCEPT TRANSPO Working Paper #3 Central Business District Study July 1, 1987 Prepared for: City of Yakima and its CBD Business Community Prepared by: The TRANSPO Group, Inc. 14715 Bel -Red Road, Suite 100 Bellevue, WA 98007 INTRODUCTION TABLE OF CONTENTS CURRENT TRANSIT SERVICE EMERGING TRANSIT SERVICE GOALS Page 1 1 1 PROPOSED TRANSIT SYSTEM CONCEPT 3 System -wide Plan Concept 3 Yakima Avenue Shuttle 6 Hotel/Fairgrounds Shuttle 7 TransitCenter 7 County -wide Service Extensions 8 SUMMARY 8 LIST OF FIGURES 1. Existing Transit Service 2 2. Public Transit System Concept 4 3. CBD Area Detail of Plan Concept 5 INTRODUCTION The City of Yakima is currently evaluating future land use and transpor- tation plans for its central business district (CBD) area. Public transit serves an important role in providing intra -city and CBD access for all City residents. That role may be enhanced by the "transit system concept" set forth below. Another important role of the public transit system is to provide inexpen= sive transportation mobility for visitors and tourists. A significant aspect of the concept presented below is to enhance the mobility of non-residents, and thereby to enhance the economic viability of significant elements of the local economy. CURRENT TRANSIT SERVICE The City of Yakima currently provides 10 transit routes to assist mobility of its residents. Existing service routes are illustrated on Figure 1. All routes except the "west side loop" focus upon service to the CBD with a specific focus toward Yakima Mali and the CBD core area. Seven of the 10 current transit routes originate within and serve the area of Yakima west of the Burlington Northern Railroad (BNRR). Six of these routes have terminal destinations within the CBD core. They are operated on a variety of core streets to avoid concentration on any one street. However, they all ultimately converge at a convenient "transit center" location along Yakima Avenue in the vicinity of Yakima Mall. There is a desire among CBD merchants to maintain this CBD core transit access. There is also a desire to explore an alternate location for bus rendezvous with inter -route transfer capability outside the core area. EMERGING TRANSIT SERVICE GOALS During the Yakima CBD land use, economic and transportation studies, the following moods and goals for public transit service have emerged. s Maintain public transit service focus on the Yakima CBD and its core to provide convenient low-cost access mobility for Yakima residents as CBD employees and business customers. -1- aowas ��su�._ oupsi.x3 t a,an6lj 10644 fvn'rrMA art rerrr/ pa, NIw4 err," 10r4,10. ♦ ..r.. ODWIDU s Sta ] orrOsOs WpW� #Warr? 1101 .rrw] lora art forth wont :90 ,0••• t r s r Z P ✓ Y Is f I' P1 �, ? ✓ 4 p 3 r 1 4 4 r A 0 I 1 A A A * 0 9161'111TflDf5V IIMEMESOMMEMIN 31va 3A1133 643 SLL9-SLS 0 71 .oar. Y, r toortf >)t sunw'„ rrrtoiwi to amoen x01 ® war »I41.I U rlOIWA1 n/a trrrle.rMMw ll..n"a=4r„rep'''p�rr4lMtIr.rl DN.vM OaalU! VYw.W,CYU�,pIfrNI3r17YOIOMMN4HNIOA 1 ] t M.rgw4.W rrrNn1w.W6Wrww llaM�wvNom arta. mar. rot W2,„t22:22dE Mrre$a r.rr.rrar.rwr r taYrer.aprrrwf .rl• a.w.raw Vawenru,uru ri, .rn'try* ,nom t,tY]/iNVYt Oaf 1"' •ww.N . aar 443 "',r.r lfffVd AINiNOW N.lw, 0010000‘• AA.+tw f a W tNr' 'IMwIMw,..we,r'f ..wawrorv) x644' .r Olt r to ._„ N,.n,Vwwaasw. run Or ...• .• ... • •-• lltWlV+r wu,.01»....w...V r. rot 0$ -dor., 4rWe OD i...r mars(at, POO 0 aroma Aram. worth.o M.t,w,Arefartaa.°,..aa 100$11000 ran arr4'�rr barrattrel file r:: • Minimize the impact of transit vehicles on CBD street congestion and on air and noise quality. • Minimize store front view blockage by transit vehicles at bus stops. Minimize curb space dedicated to transit vehicles only. • Provide high -frequency transit shuttle service along Yakima Avenue to serve all economic attractions in the East and West CBD area, includ- ing the hotel and convention facilities at the east end of the CBD and east of I-82. • Provide scheduled or shuttle transit service between the hotel and convention facilities at the east end of the CBD and the Yakima Meadows Fairgrounds and Yakima Air Terminal. • Seek a new "transit center" location outside the CBD core for transit coach layover and convenient inter -route transfers. PROPOSED TRANSIT SYSTEM CONCEPT System -wide Plan Concept Considering these moods and goals, a revised public transit system service concept has been devised as illustrated on Figures 2 and 3. Figure 2 views the concept at a City-wide perspective. Figure 3 provides a closer look a the CBD vicinity. The concept focuses upon a new transit center in the West CBD area, together with a high -frequency (five minute) Yakima Avenue shuttle service through the East CBD to its hotel and convention facilities. Five of the eight existing west side transit routes would be focused upon the transit center, timed for convenient inter -route transfer (timed transfer), and inter- connected east through the East CBD with the high frequency Yakima Avenue shuttle. One existing route (#4) could perhaps be eliminated by this service con- cept. By terminating four of the five routes at the west side transit ter- minal (and eliminating one route), many route miles and service hours could be eliminated. These savings would more than offset the costs of a free high - frequency Yakima Avenue shuttle service to/from the East CBD. Route #5 (Nob Hill Boulevard) could follow its existing route to the East CBD via 6th Street. However, the high -frequency CBD shuttle would replace its -3- CILLEJLBET114 G:7 infiEl—Hri Ifl1 1 infEL ..D: i: rri 3C1 ]J] ] BE .60 Li 1 IL i mime mai omens MINI Is:1011=111 ii.q... Ha --,7. 0" I.. Ilii II I I-1 CZ2 "'. el.,1 -1 _—_-1G--1 1Z -JO —I -1 .7411.1Z111... , 14-10 •Sa_DIO —1111)HS rath .31T1C:ii — • j-d2)AVO P131.41. A c igvi4U.. /7677,d 91.—L VAStt' r. ...Int •I. 1 JIROMI FAIR Rt LLOW 34 SSISMA USW INNS AVINVC l *WAR 1 EirAVuUC ©v EA - CRtRRY 4,4 ROoai !SIT() 13 NTION r IL POLtOM KIWANIS PARK AV[RO[ �:C R MA►lt T. Z '--- WASH PARK & CHOOL 2 ST v -LIZABET1 Jr RAYMO D PARK ACIFIC AVM[ Figure 3 CBD Area Detail of Plan Concept lob O YAKIMA MEADOWS 0 CENTRAL WASHINGTON STATE FAIRGROUNDS LARSON PARKts J • YL00R OR. G74"117'144 11711E CEM/RAL AVt. ii 11 1t0il"021 ARCM AIT 1*0.1 lK2 I need to interface with other routes in the CBD core. Hence, it could be thru routed with a north ieg that replaces a major portion of Route #7. Route #9 could be adjusted to provide direct service between the airport, the fairgrounds, and the East CBD hotel and convention facilities. It could be "time transferred" at South lst and Mead with a proposed new Route #11 to serve access to all hotels and businesses along the "1st Street strip". It would interface with the high -frequency Yakima Avenue shuttle at the East CBD hotel and convention center. It could continue east on Yakima Avenue to provide continuous "one -seat" service to hotels east of 1-82. A new "Route #11" is proposed for the "lst Street strip" from a new north terminus near the I-82/SR 12 interchanges to a south terminus near Valley Mall (or as permitted by current franchises). This route could also become a free or low-cost shuttle service -- at the discretion of the City and associated businesses. This route, together with the northerly extension of Route #5, could eliminate the need for current Route #7. The combination of adjusted Route #9, new Route #110 and the high - frequency Yakima Avenue shuttle could eliminate the need for current Route #6. Yakima Avenue Shuttle Five "west side" transit routes would terminate at the "west side transit center", as illustrated on Figure 3. Within minutes, patrons destined for the East CBD would be conveyed by the Yakima Avenue shuttle. The City and its CBD merchants could have fun in devising this Yakima Avenue shuttle. During winter months and/or peak commuter periods, its vehicles could simply be extensions of any of the routes feeding the west side transit center (provid- ing "one -seat" service for the high-volume routes). During the summer season and special event periods, the shuttle service could be supplemented by a high -appeal visitor oriented set of transit vehicles. These could range from mini -vans to rubber -tired trolleys, specially decorated to encourage use. Use should be low-cost or free, and/or subsidized by virtue of hotel cards issued to visitors and free to transit rider transfers. The west end terminal of the shuttle service could service St. Elizabeth Hospital and Davis High School (as illustrated on Figure 3). The east ter- minus for high -frequency service (or conventional route turnbacks) would be a loop up North 9th Street past the Holiday Inn, and back to Yakima Avenue via East "A" and North 8th Streets past the convention center. All or alternate schedules could extend east to the hotels east of 1-82. Hotel/Fairgrounds Shuttle During fairgrounds events, additional shuttle service could be provided between the hotels and convention center (and convention center parking facil- ities) and the fairgrounds (see Figure 3). The supplemental service could have one terminus at the hotel facilities east of 1-82 and the other at the fairgrounds. It would loop past the Holiday Inn and convention center to assure maximum service to these facilities. The Yakima Avenue shuttle service could also be extended to the fairgrounds during such events. Again, a variety of special summer service transit vehicles could be acquired and assigned to these special summer and seasonal events routes. Extra service on revised Route #9 could also interconnect these destinations with the airport with increased frequency during peak tourist periods. Transit Center Initially, the focus of effort was to find an East CBD location for a transit center. The Greyhound bus terminal was the focus of that attention. Greyhound officials have recently disclosed that the terminal is not for sale, nor available for local transit use. As studies progressed, it became apparent that a "west side" transit terminal may be more useful and expedient in the short-term future. Since most of the Yakima Transit routes originate in West Yakima, it would enhance transit service and inter -route transfers if a transit terminal could be located along the Yakima Avenue corridor west of the BNRR. Toward that objective, prospective transit terminal sites should be ex- plored and evaluated along Yakima Avenue between South 10th and South 1st Avenues. Such studies should be pursued with special allocations of available Federal and State funds. From the foregoing discussion, it is apparent that a "west side transit terminal" could result in a more cost-effective transit service to the City. Studies will also need to determine the most effective west terminal location for the Yakima Avenue shuttle service, and the cost/user effectiveness of such a service concept. _7_ County -wide Service Extensions As illustrated on Figure 2, it would be easy and desirable to extend transit service to the entire County of Yakima. To do so would require recon- sideration of a County -wide "public transit benefit area" (PTBA). This would mean transferring the authority for providing and operating public transit service to a new special district authority, with a governing body represen- tative of all jurisdictions within the County (or PTBA). It is recommended to the City and County that renewed consideration be given to a County -wide transit service system. SUMMARY It is highly desirable to enhance the Yakima Transit public transit ser- vice system to cater to tourism and seasonal ridership potential. To do so, a high -frequency Yakima Avenue shuttle service would be desirable between St. Elizabeth Hospital on the west, the hotel and convention center facilities in the vicinity of North 7th and North 9th Streets, and the hotel facilities east of I-82. A transit center in the West CBD area would help focus on these goals, and could help streamline transit service within the City. A revision of transit Route #9 could greatly enhance public transit ser- vice between the airport, the fairgrounds, and the hotel/convention facilities in the East CBD and east of I-82. Appropriate route revisions of Routes #5 and #9, together with the addition of a new Route #11 along 1st Street could eliminate the need for current Routes #6 and #7. A supplemental shuttle system from the hotels east of I-82 via the 8th/9th hotel and convention center facilities to the fairgrounds could be highly economical to the City during summer months and seasonal opportunities. The City of Yakima should explore with Yakima County and other cities within the County the advantages of extending now current City transit routes to all parts of the County through a "public transit benefit area". 1111„.11v1 CITY OF YAKIMA NTO N HOUSING PLM MAY 1989 DEPARTMENT OF COMMUNITY'AND ECONOMIC DEVELOPMENT OFFICE OF HOUSING AND NEIGHBORHOOD CONSERVATION 112 SOUTH 8TH STREET YAKIMA, WASHINGTON 98901 CITY OF YAKIMA OFFICE OF HOUSING AND NEIGHBORHOOD CONSERVATION DEPARTMENT OF COMMUNITY AND ECONOMIC DEVELOPMENT 112 SOUTH 8TH STREET YAKIMA, WASHINGTON 98901 (509) 575-6101 DOWNTOWN HOUSING PLAN MAY 1989 Abstract: This report identifies existing housing resources in downtown Yakima and presents recommended actions to preserve and promote viable residential neighborhoods. FINAL DOCUMENT Prepared By Dixie Kracht, Block Grant Manager Joan Davenport, Associate Planner Support Staff of the Office of Housing and Neighborhood Conservation EOUAL HOUSING OPPORTUNITY Table of Contents Executive Summary 1 Summary of Findings Recommended Actions Part One: Introduction Overview and Housing Conditions Overview Part Two: Existing Downtown Neighborhoods Map 2: Existing Residential Uses Map 3: Residential Development and Preservation 2 3 4 5 6 7 A. Low Density Residential Neighborhoods 8 B. Low Density Scattered Sites 11 C. Moderate Density Residential Areas 13 D. High Density Residential Structures 15 E. High Density Mixed Use 16 Part Three: Summary and Recommendations 19 A. Low Density Neighborhoods 19 B. Low Density Scattered Sites 20 C. Moderate Density Residential Areas 20 D. High Density Structures 20 E. High Density Mixed Use 20 Recommended Actions 22 EXECUTIVE SUMMARY: YAKIMA DOWNTOWN HOUSING PLAN Yakima's future economic role will be influenced by the expansion and strengthening of the business community within Downtown Yakima. Downtown Yakima must meet the challenge of integrating land use changes with existing development patterns. Many factors exist which will influence change of the Yakima Downtown area, which include: the construction of the "SunDome" and its impact on traffic and neighborhoods, freeway interchange development, City Convention Center expansion and others. As plans develop for these expansion activities, planning for existing residential areas must also occur. Neighborhood areas which may be impacted must be identified at an early stage so as to minimize negative impacts upon residents. The Downtown Housing Plan was prepared to address the issues of land use and neighborhood compatibility. The vitality of business areas is enhanced where land use compatibility is achieved over Targe areas. Compatibility between different land uses often depends upon proper transitional or buffer areas and careful site design. If similar uses are clustered, land use compatibility can be encouraged. The Downtown Housing Plan serves four principle purposes: 1. Identification of existing downtown housing resources and current issues influencing neighborhood conditions. 2. Proposes actions which may be taken to reduce negative impacts of land use transitions upon neighborhoods. 3. Outlines implementation strategies which promote neighborhood preservation, where appropriate. 4. Presents beneficial results of implementation strategies which should be monitored for effectiveness or other needs. A draft of the Downtown Housing Plan was presented for review and comment to the Downtown Yakima Merchant's Association, the Community Development Advisory Committee, the Yakima Regional Planning Commission and at two public, neighborhood meetings. A wide variety of comments were generated regarding the document. As a result of this review process, the plan was finalized. This Housing Plan should be used as a reference in assessing the relative impact of development activities within Downtown Yakima upon the existing housing resources. The Downtown Housing Plan recognizes some land use transitions are necessary to accommodate economic development. This plan assists in the identification of residential areas which will be considered in any land use changes. The following "Summary of Findings" presents many of the issues discussed in this study. ISSUES SUMMARY OF FINDINGS REMEDY BENEFIT LOW DENSITY NEIGHBOR- HOODS: 1 -Adjacent arterial traffic 2 -Commercial expansions 3 -High density areas 4 -Decline in homeownership 5 -Deferred Maintenance 6 -Unstable property values 7 -Neighborhood crime 8 -Non -conforming uses 9 -Special population 1 -Divert future traffic 2 -Buffer zones 3 -Buffer zones 4 -Encourage ownership 5 -Affordable money 6-Public/private improvements 7 -Public involvement 8 -Promote orderly development 9 -Affordable housing 1 -Preserve stabilze area 2 -Minimize conflicts 3 -Minimized conflicts 4 -Preserve, stabilize area 5 -Preserve housing stock 6 -Strengthen tax base 7 -Minimize crime 8 -Promote orderly development 9 -Prevent homelessness LOW DENSITY SCATTERED SITE: 1 -Change in character 2 -Loss of privacy & security 3 -Increased traffic 4 -Land use conflicts 5 -Loss of homeownership 1 -Retain key structures 2 -Transition into commercial 3 -Retain traffic patterns 4 -Encourage redevelopment 5 -Maintenance of structures 1 -Reduce conflicts 2 -Orderly development 3 -Access commercial areas 4 -Appropriate development 5 -Retain sound building stock MODERATE Isolated DENSITY: 1 -Commercial influence 2 -Conflicting land uses 3 -Loss of privacy Clustered 1 -Impacts low density area 2 -Requires greater public services 3 -Depreciates adjoining homes 1 -Transition of area 2 -Encourage investment 3 -Redevelop property 1 -Buffer zone 2 -Cost effective service area 3 -Encourage good management 1 -Minimize land use con- flicts 2 -Increase property values 3 -Reduce public service cost 1 -Preserve neighborhood areas 2 -Promotes affordable, secure housing 3 -Minimizes negative in - pacts to adjoining area HIGH 1 -Require more public ser- vices & facilities 2 -Disrupts adjacent low density areas 3 -Visually & economically impacts neighborhoods 4 -Special populations 1 -Cost effective service area 2 -Encourage good management 3 -Siting controls 4 -Preserve housing oppor- tunities 1 -Promotes affordable housing 2 -Preserve neighborhood 3 -Orderly development 4 -Promotes affordable housing HIGH DENSITY 1 -High vacancy rates 2 -Inadequate parking 3 -Inappropriate for families 4 -No neighborhood setting 5 -Poor condition, low income units 1-Public/private investment 2 -Provide parking options 3-Market/design appropriate 4 -Redesign for privacy & open space 5 -Diversity income & type of units 2 1 -Expand downtown popu- lation 2 -Few new public services required 3 -Create market demand 4 -Potential labor & pur- chasing power 5 -Reduce crime Recommended Actions: To promote orderly development and protect viable downtown, the following actions should occur. * Continue capital improvement and public neighborhoods. * Preserve and promote an adequate supply mixture of housing types. residential neighborhoods in the service investments in downtown of affordable housing, as well as a * Encourage community efforts to reduce area crime problems. * Develop a preservation policy for historically significant structures. * Maintain existing traffic patterns where feasible. * Examine residential parking requirements in downtown. * Review site and design control measures. 3 PART ONE OVERVIEW AND INTRODUCTION The Office of Housing and Neighborhood Conservation, a Division of the City of Yakima's Department of Community and Economic Development, has existed since 1971. It was developed for the purpose of assisting the needs of low/moderate income persons and neighborhood preservation. This direction was defined by the primary funding source of Community Development Block Grant funds and was adopted as the goal of the program by members of Yakima City Council, Community Development Advisory Committee and the community overall. Since beginning the program, in excess of $14 million has been spent in the community, largely for housing rehabilitation. The success of the program has been the awareness and consideration of neighborhoods and housing stock. A well preserved and maintained neighborhood is a goal that benefits the overall community by establishing a solid tax base and providing sound, affordable housing. This history of accomplishment and concern and responsiveness to federal and state grant requirements prompted the preparation of this report. The City of Yakima has a vested interest in the preservation of residential areas that have received public capital improvements and benefitted from residential rehabilitation programs. An awareness and recognition of neighborhoods, must be considered when and if, elements of policy are being proposed that could effect them. Detrimental factors imposed on affected residential areas can cause the separation, transition or ultimate distruption of an established stable neighborhood 4 DOWNTOWN STUDY AREA HOUSING STOCK BY STRUCTURAL CONDITION Sound Minor Major Dilapi- Unknow Total Unit Type Condition Rehab Rehab dated Condition Units Single Family Detached 143 35 17 2 11 208 Duplex Units 122 74 7 1 2 206 Multi -Family (3 or more units) 431 26 8 1 - 466 Group Quarters 60 10 1 1 72 Other (not specified) 174 13 2 1 19 209 Total 930 158 35 5 33 1161 80% 14% 3% -% 3% Housing Stock: The CBD Study Area Neighborhood currently contains approximately 1161 housing units. A number of structurally sound housing units are occupied by special populations including 4 units of public housing, 251 units of "202" elderly and 98 CDBG rehabilitated structures. Within a two block radius of the Downtown Study Area, there exist an additional 38 units of public housing, 97 units of Section "202" elderly and 36 CDBG rehabilitated structures. The structural condition of the neighborhood's housing stock is summarized above. 5 OVERVIEW This report includes a summary of existing housing and neighborhood characteristics, development issues, and recommendations findings. Each defined study area has several different elements that describe their character, present condition, impediments, implementation strategies and proposed benefits. 1. Existing characteristics - This section describes the study areas. It includes the boundaries, present land use, traffic arterials and other related variables. 2. Issues - This section outlines the many impediments of the area that are either imposed by outside influences or are problems contained within the area. 3. Remedy - This section details the proposed remedy or resolution of the listed impediments of this area. 4. Benefits - This section reflects the benefits that can be derived by the implementation of the listed strategies to both the neighborhood and their residents and the community. The final section of this report has two parts which present findings, conclusions and recommended actions. A. Summary: This section summarizes all of the findings data of the study area. B. Recommendations: This section recommends actions to assist and provide future direction for the treatment of neighborhoods. 6 PART TWO EXISTING DOWNTOWN NEIGHBORHOODS This portion of the report examines the existing residential areas in downtown Yakima by structural type and location. Within Yakima's downtown approximately 1160 housing units of various types exist. Where single family homes are clustered, a sense of neighborhood is often present, despite the proximity to commercial activity. Where single family homes are isolated in a commercial setting, the home seems out of place and threatened by its surroundings, often due to redevelopment of residential areas. Many of the downtown housing units are rentals located in multi -family structures. Multi- family developments may be of a moderate density of three to eight units or a high density of nine or more units. Many apartment structures contain twenty or more dwelling units. A sense of neighborhood in areas of multi -unit structures often depend upon clustering of these similar uses and the nature of adjoining land and transportation networks. Finally, there are housing units located on the upper floors of some commercial structures. This type of mixed-use structure was common early in this century and there are examples of both developed and vacant uses in downtown Yakima. The remainder of this chapter is devoted to more detail on these various downtown residential settings. A map is included for reference. In many areas with land use conflicts, the Housing Plan describes the need for buffer zones. These buffers may include fences, landscaping or simply the need to separate some uses by placing a more compatible land use in between. The need for buffering incompatible land uses requires individual, site-specific evaluation. The following maps identify existing downtown neighborhoods, residential structures of historic significance and opportunities for mixed use redevelopment. is.ir DOWNTOWN YAKIMA HOUSING PLAN MAP 2: EXISTING RESIDENTIAL USES LOW DENSITY NEIGHBORHOODS 1. NORTHEAST 8TH ST 2. SOUTHEAST 3. EAST PITCHER ST 4. NORTHWEST Other low density structures outside these neighborhood areas are not mapped. QQ( MODERATE DENSITY (3-8 UNITS) HIGH DENSITY (9-19 UNITS) VERY HIGH DENSITY DOWNTOWN YAKIMA HOUSING PLAN Map 3: POTENTIAL DEVELOPMENT AND PRESERVATIONS OPTIONS HISTORICAL PROPERTIES: *NATIONAL REGISTER OF HISTORIC PLACES *1985 STATE INVENTORY OF HISTORIC STRUCTURES NON-RESIDENTIAL HISTORIC STRUCTURES NOT MAPPED MIXED-USE PROPERTIES: POTENTIAL MIXED USE DEVELOPMENT EXISTING MIXED USE DEVELOPMENT A. LOW DENSITY RESIDENTIAL NEIGHBORHOODS Characteristics: Neighborhood areas are composed of single family detached homes or duplex structures located on standard city lots. The age and construction styles of adjoining homes economic background. Existing Conditions: Four distinct low density neighborhoods exist within the downtown study area, which are summarized as follows: 1. Northeast 8th Street Neighborhood. This area contains approximately 123 homes, of which 40 percent are owner -occupied. Additionally, four homes are on the National Register of Historic Places and 19 other homes are identified on the state Inventory of Historically Significant Structures. The neighborhood is currently subject to arterial traffic north on 8th Street, Lincoln and "B" Street. Commercial influences are greatest South of the neighborhood from the Convention Center/motel area. The area east of 10th Street has possible commercial redevelopment potential to the west and north, residential areas exist. The zoning of the neighborhood is R-3, Multi -Family Residential except 8th Street which is zoned B-1 Professional Business. 2. Southeast 8th Street Neighborhood. This area contains approximately 108 homes, of which 25 percent are owner -occupied. Ten residential structures are listed on the State Inventory of Historic Structures. Arterial traffic influences in the neighborhood include Walnut Avenue, 8th and 6th Street. Commercial development is present north of the neighborhood between Yakima and Walnut Avenues. The area is zoned R- 1, single family residential and R-2, two family residential. 3. East Pitcher Street Neighborhood. This area contains approximately 40 homes and is 25 percent owner -occupied. It contains no historically significant structures. Arterial traffic is north of the neighborhood, on Yakima Avenue. Commercial influences exist north and west of the neighborhood. Two semi -industrial uses are located on the north side of Pitcher Street. This area appears to be subject to land use transition due to the condition of many structures. 4. Northwest Neighborhood. This area contains approximately 125 homes, of which 40 percent are owner -occupied. It is composed of the 800-900 blocks of Jefferson, Folsom and Browne Avenues, west of 7th Street. No structures in this neighborhood were identified as being historically 8 significant. The neighborhood is fairly homogeneous and is not subject to heavy arterial traffic. Lincoln Avenue to the north, 7th Avenue to the east and Summitview Avenue to the south are arterials. To the west of the neighborhood, a high density area exists. Other commercial influences exist to the south and east. The neighborhood is zoned R-3 Multi -Family Residential. Issues: In low density neighborhoods the following conditions create neighborhood instability and influence present use: 1. Increased traffic flow within or adjacent to residential neighborhoods, reduce neighborhood stability by the imposition of noise, safety hazards, and lack of privacy. 2. The pressure of commercial expansion may expose residential neighborhoods to excessive traffic, pedestrian presence, parking problems and an overall lack of privacy. 3. Adjoining high density units impose parking problems, increased traffic, competition for existing public services, schools, and transit to low density areas. 4. The ratio of renters to owners within an area can be detrimental to a neighborhood through lack of good management, maintenance and security that is often associated with individual homeownership. 5. A lack of maintenance to the property (due to neglect or affordability) decreases the value of property. 6. A low tax base reflecting unstable property values makes potential investment and/or homeownership both unattractive and unfeasible. 7. High vacancy rates reduces reinvestment potential and creates poor resale values. 8. Existing non -conforming uses within neighborhoods result in unstable neighborhood settings and therefore they may not receive the necessary maintenance and investment. 9. Neighborhoods with large numbers of low income residents or other special populations do not have the ability nor the funds to support care and maintenance in the ownership of properties. Remedy: To combat the imposed impediments to a low density residential 9 neighborhood the following strategies need to be considered. 1. Traffic patterns need to be diverted away from or along the outside fringes of residential neighborhoods. 2. Residential areas need to be defined and recognized as such. Buffer zones should be placed in between the existing neighborhoods and commercial areas. 3. Where high density neighborhoods adjoin low density areas, buffer zones are necessary to prevent the disruption of established single family neighborhoods. 4. Neighborhoods adjoining or containing conflicting land uses, there is a tendency to convert homeownership to rental property. To prevent the transition, homeowership programs need to be encouraged and implemented. 5. Neighborhoods containing a concentration of low income families may require rehabilitation assistance programs to provide affordable funds to maintain existing structures. 6. Both public and private sector need to be involved in the maintenance of a neighborhood. This should be through public capital improvements and a well maintained housing stock for future sales and demand. 7. Through individual commitment to residential neighborhoods and awareness of the community, the influence of illegal activity may be controlled within each neighborhood. These efforts in cooperation with the public enforcement entities will deter crime. 8. A non -conforming land use or structure may depreciate and imposes transition on existing established uses and should be assessed through a land use study. 9. Low density neighborhoods which house large numbers of special need persons including low income or elderly require public involvement to maintain the existing housing stock and make affordable housing available. Benefit: The implementation of strategies to preserve neighborhoods benefit the entire downtown area. 1. Protection of low density areas by diversion of traffic away from them will result in stable and preserved cohesive neighborhoods. 2. The proper placement of buffer zones assist areas in functioning as their intended uses to full potential. These buffer zones will assist in minimizing the potential nuisances imposed by such areas. 10 3. The restriction of high density development from low density neighborhoods reduces the chance of over -development and conflicts in land uses. 4. The promotion of individual homeownership in low density neighborhoods will result in the stability and cohesiveness of these areas. 5. The implementation of rehabilitation programs results in the preservation of existing housing stock, historical properties and affordable housing opportunities. 6. The improvement of neighborhoods will not only be reflected in a strong tax base but will influence the surrounding areas to assist in economic growth. 7. The awareness of community residents in conjunction with the involvement of the public entity will result in security and minimize criminal activity. 8. The implementation of appropriate zoning through land use planning will better reflect what actually exists and promote orderly development. 9. The availability of affordable housing to special populations and low income persons will result in the prevention of potential homeless persons. B. LOW DENSITY SCATTERED SITES Characteristics: Single family or duplex structures in scattered sites or small clusters surrounded by commercial or industrial land uses. Existing Conditions: Isolated residential units are found throughout the downtown area and are common in many older residential neighborhoods which have converted to commercial use. A majority of the units are rental occupied and some structures may have historical significance. Although some of these units are located along arterials, their general commercial setting diminishes the neighborhood character. Issues: Low density units intermixed with other land uses often have the following problems : 1. Neighborhood quality has been lost by the activities of the mixed uses now in existence. 2. The mixed use areas subject to commercial activity create the lack of security and privacy that would exist in a standard neighborhood setting. 3. In areas of mixed use, traffic and parking needs increase. 11 4. In an area of many different types of activities, there exists potential conflicts in land use. 5. An area used for many purposes often end up in a transitional state and homeownership is turned to rental investment for future speculation of commercial use. Remedies: The problems of mixed use areas can be addressed by implementing strategies as implementing strategies as follows: 1. Although a residential structure might change use, the original building may be retained and converted. This concept maintains the integrity of the area and assists in the preservation of identified historical structures. 2. A neighborhood that is in transition needs preservation guidance for its redevelopment. There is rarely public benefit in trying to retain residential structures in areas which have transitioned into commercial uses. 3. To assist in the gradual transition of these areas, the residents should not be exposed to new arterial traffic patterns. Existing traffic areas need to be maintained and appropriate new areas developed with the sensitivity to the existing residents who still reside in such areas. 4. The recognition of a better land use assists in the transition of these areas and have the encouragement of investment and redevelopment, if zoned appropriately. 5. During the transition period of an area, property owners should maintain their structures for future value. This maintenance would continue the mainstream of income flow, reflect actual or appreciated value and be an economic influence on the adjoining properties. Benefits: In the appropriate implementation of policy and guidance of the redevelopment of this study area, the following benefits could be derived. 1. With proper guidance, the present land use conflicts are minimized so they become more compatible and complement one another. 2. The transition of the mixed uses into commercial areas assist in orderly development and makes the overall area more attractive and compatible. 3. The increase in the development due to transition to commercial uses would not impose any needed change to existing traffic patterns. 4. The redevelopment of these uses would allow and recognize the best uses of this area. This recognition would assist and guide the present ownership in the marketing and appropriate development of their properties. 12 5. The retention of the existing characteristics of the building in the transition of uses could result in an attractive, cost-efficient setting. This retention would reflect a higher appreciated value then the existing use and could result in a lower level of needed investment than new construction. C. MODERATE DENSITY RESIDENTIAL AREAS Characteristics: An estimated 54 residential structures containing 3-8 units are located in downtown Yakima. Often these structures are found in clusters and may require neighborhood considerations. Moderate density structures may create land use conflicts if isolated in commercial areas. Existing Conditions: Both isolated and clustering of moderate density structures exists. When located in commercial settings, there appears to be a tendency for poor maintenance. Some historically significant single family structures have been converted into 3 to 4 units, often in settings of land use transition. The location of moderate density structures does not appear to be dependent upon arterial roadways. Moderate density areas are often more compatible with high density than low density neighborhoods. Issues: Residential structures that house 3-8 units have different impediments based on their locality. Moderate density units which are isolated or stand alone have different problems than those that are located in clusters. Isolated: 1. Due to their isolated settings they are often influenced by surrounding commercial uses. 2. These type of units have the ability to stand alone economically but may be in conflict with existing land uses. 3. Residential settings need the right of privacy and the buffer from noise and traffic which often cannot be achieved. Clustered: 1. These rental properties may impact a single family neighborhood by generating an increase in parking, traffic, noise and competition for public services. 2. Greater public services are required to serve moderate density areas including fire, police, transit, garbage, water, sewer and school support services. 13 3. The deterrent factors that are imposed from moderate density areas to single family neighborhoods include the influence on their economic value and could deter the market for homeownership. Remedy: Implementing strategies to eliminate the imposing impediments requires different types of resolution depending upon the area in which they reside. Isolated: 1. Units located in areas of conflicting uses may be redeveloped into like properties through a future transition. 2. To prevent land use conflicts the market may be used to make the best use of such properties that are compatible. 3. Rental units within a commercial setting have a lower economic value than the adjoining properties and lack the residential quality needed to be used and retained for future residential use. Through the appropriate guidance these units may be removed. Clusters: 1. A buffer zone should be developed between low density neighborhoods and the moderate density areas through appropriate design and adequate parking. 2. The location of public services in existing areas can often be expanded with no major impacts or competition for the existing services. 3. Due to similar characteristics, the reinforcement of neighborhood values and pride reflects in the overall care and maintenance of such areas. This should be promoted by good property management. Benefit: The implementation strategies properly considered will bring about benefits for such areas in the following manner. Isolated: 1. Existing land use conflicts may be minimized and more complementing uses instituted. 2. The existing value of the moderate density property may increase in value by the conversion to commercial use. 3. The need for some public services will be reduced. 14 Cluster: 1. Proper maintenance and design strategies result in the preservation of housing opportunities. 2. In neighborhood settings, the provision of public services is more affordable, and these areas tend to have a sense of security and accessibility. 3. Well-designed moderate density developments minimize the impacts to adjoining residential areas of homeownership and promote stable and secure neighborhoods. D. HIGH DENSITY RESIDENTIAL STRUCTURES Characteristics: Free-standing structures containing 9 or more dwelling units require substantial parking and public services. Nearly 200 housing units in the downtown are located in structures which contain 9 to 19 units. Over 300 housing units are located in structures containing 20 or more units within downtown Yakima. Existing Conditions: Existing high density structures are primarily located on arterial roadways or the fringes of commercial areas. Most structures are new buildings constructed since 1970. Due to the scale of developments, high density structures are often commercially operated for higher economic return. Larger developments are generally better maintained than those of moderate density, due to professional management. Many residents of high density structures belong to special population groups, including over 300 units for fixed income elderly. Problems: High density properties that adjoin residential neighborhoods impose the following problems in such areas. 1. Properties that house large numbers of units require and compete with existing neighborhoods for public services. This impact could increase the need for police, fire, schools and other services. 2. The rights of privacy and the existing neighborhood characteristics of single family occupancy may be disrupted by the increased activity imposed on the area. 3. High density units will generate an increased traffic and the need for parking. 4. The design of high density buildings could deter from the appearance of a residential area with existing building characteristics due to the 15 characteristics of the structures. 5. Higher density units have the tendency to give the appearance and activity of a commercial setting. 6. In the development of housing units under public assistance programs, there may be a tendency to concentrate persons of special populations in one area. Remedies: To assist existing neighborhoods reduce the impact of many impediments, the following strategies need to be taken into consideration. 1. Existing high density units need to be well maintained and managed so that they do not negatively impact their surrounding neighborhoods. 2. Any proposed new units should be controlled in respect to their design, site development and location. Benefits: Many benefits can be derived from implementing specific strategies to help preserve and protect existing neighborhoods, as follows. 1. The retention of the integrity of existing neighborhoods for the preservation of both the occupancy group and the value of the properties. 2. The availability of public service is more cost effective when offered to a large number of units rather than on a scattered site basis. 3. Through the use of controlled design standards, the development of high density areas reflect the best use of property and can be more cost effective. 4. The proper use of available property provides for appropriate land development resulting in an attractive and good investment that appreciates in value. E. HIGH DENSITY MIXED USE Characteristics: These residential areas contain nine or more housing units located on the upper floors of commercial structures built prior to 1940. Mixed use structures are primarily located within the commercial core on high traffic roadways. Existing Conditions: Although no accurate estimate exists of the potential number of mixed use residential units in downtown Yakima, over 30 structures were identified which contain some residential/commercial mixed-use. Since many structures are nearly 50 years old, building or safety code deficiencies may now exist. Many of these residential units suffer from deferred maintenance and are either vacant or underdeveloped, serving as storage areas. 16 Existing residents of the high density mixed use units are often low income or other special population groups. Even in well maintained mixed use structures, units do not lend themselves well to families due to limited opportunities for secure play areas. Problems: High density properties that are located within a mixed use area could be imposed with many different problems as indicated below: 1. Properties that house high numbers of rental units and are located in mixed use areas often have high vacancy rates and may need to provide lower rents to increase occupancy. 2. Residential units that are located in a mixed use areas often have an inadequate supply of parking. 3. Given the typical setting of rental units located within a mixed use area, family occupancy would be difficult due to the lack of open space as needed by children. 4. The typical residential setting that accompanies neighborhoods could not be duplicated in these type of units because of their location. 5. At this time with the high density units in their present condition, populations that are very low income are being housed. Remedy: Using the following implementation strategies the imposed and anticipated concerns could be resolved. 1. The combination of both public and private investment through commitment in policies and funding will be needed to make the redevelopment of these areas financially feasible. 2. Public policy will need to be established in the development of more parking in the downtown area. 3. In the development and redevelopment of high density units, both the projected market clientele and the design of the building should be analyzed to maximize the potential of the project. 4 A building that is to be developed or redeveloped could be designed to potentially retain some aspects of a neighborhood setting, specifically to privacy, noise control, open space areas, and give a sense of security. 5. In the projection of potential clientele, the units should be diversified to type and income levels to make multiple housing opportunities available. Benefits: The benefits derived from the implementation strategies will assist in 17 the redevelopment of the existing mixed use high density areas. 1. The investment in the development of mixed use high density areas will result in potential consumer and labor markets that would support the surrounding area business. 2. The available public service areas are currently in place and no new expansion would be needed. However, additional parking and/or a new policy for residential parking is needed to assist and support the new investment into the area. 3. The potential redevelopment of areas makes a secondary market available to existing uses and provides additional revenue. 4. The development of existing buildings would assist in the preservation of the downtown area and any potential historical sites. 5. The increase of population in the downtown area creates a new market and demand for consumer goods and services. 6. The continuation of activities within the area will impose a sense of homeownership which deters crime, loitering and provides a natural surveillance in the area. 18 PART THREE SUMMARY AND RECOMMENDATIONS This report has presented a review of the existing housing stock in downtown Yakima. Due to the diversity of residential settings in the downtown, it is convenient to distinguish areas by construction type, and uses as described in this study. Each residential type has a unique set of characteristics, difficulties and development opportunities that are either existing or imposed by outside influences. Evaluation and Summary The evaluation of Yakima's downtown housing stock, and its residential setting should be reviewed in context with other city policies or plans, and their goals for each area may differ. The following is as summary of key issues for each residential setting. A. LOW DENSITY NEIGHBORHOODS In general, the identified low density residential neighborhoods should remain intact and protected from further commercial encroachment. Each of the four areas discussed in this report are fully developed, established neighborhoods. If appropriate locational considerations are reserved, these areas can be substantially preserved without jeopardizing commercial development in downtown Yakima. To protect these neighborhoods, the following issues should be considered. 1. Commercial expansion adjacent to neighborhoods is appropriate if buffered. 2. Recognition of neighborhood boundaries can be enhanced if a land use map is developed for the downtown which recognizes residential or other sensitive area. 3. Area -wide crime influences can be reduced and unstable property values improved if homeownership is promoted, private properties rehabilitated and public improvements made, where necessary. 4. Particularly in the northeastern neighborhood area, preservation of the existing building stock is important, given its historical significance. Strategies should be designed to protect much of the historic character of downtown Yakima. Where changes in land use occur, priority should be given to preservation of historic structures. 5. Arterial traffic should be minimized through low density residential neighborhoods. Any new routing patterns for downtown streets should consider the adverse impact of heavy vehicular traffic on low density 19 neighborhoods. B. LOW DENSITY, SCATTERED SITE These isolated single family or duplex residential structures, as identified in this study may be the remnants of previously existing neighborhoods. However, due to redevelopment, the structures are now isolated in commercial areas. The residential use of these properties should likewise be encouraged to redevelop to a more compatible use. To assist in the orderly transition of these properties, consideration should be given to the following. 1. Historically or architecturally significant structures should be retained where feasible for adaptive reuse. 2. These isolated residential structures are often found on high volume roadways. These roadways should be encouraged to retain their arterial functions, thereby maximizing commercial potential and reducing arterial traffic flows in other established neighborhood areas. C. MODERATE DENSITY RESIDENTIAL AREAS Residential developments of between three to eight units are found throughout downtown Yakima in either isolated or clustered settings. If not in proximity to other similar residential structures, the moderate density use seems out of place in commercial or low density settings. When several moderate density uses are clustered, they can create a neighborhood atmosphere, if properly designed. To effectively accommodate and plan for moderate density uses in downtown Yakima, the following considerations are summarized. 1. Moderate density structures isolated from other similar uses often create land use conflicts. Appropriate neighborhood protection cannot usually be extended to tenants. Therefore, redevelopment of such sites to higher intensity uses may be suitable. 2. Clustered settings of moderate density residential structures allow cost effective public services, minimize land use conflicts and often provide affordable, safe housing opportunities, which are compatible with the downtown area. 3. When structures are subject to redevelopment, the building envelope should be preserved, if it is architecturally or historically significant. D. HIGH DENSITY RESIDENTIAL STRUCTURES Residential developments of nine or more dwelling unites are located throughout downtown Yakima, and often take on their own neighborhood character. Given the size of the structures and traffic generated, high density developments may detract from surrounding neighborhoods. The following comments summarize 20 some high density considerations in downtown Yakima. 1. Existing structures should be preserved and maintained since they provide many affordable housing opportunities. 2. New high density structures require careful siting and location evaluation to determine neighborhood compatibility. E. HIGH DENSITY MIXED-USE RESIDENTIAL AREAS This residential type, as described in this study is presently underutilized. In determining the feasibility of such projects, the following items should be considered. 1. The project feasibility based on market demand and code requirements needs to be considered in development of housing opportunities for special populations and often require assistance from the public sector 2. Sufficient residential services need to be made available for expected new residential populations. 21 RECOMMENDED ACTIONS To promote orderly development of the downtown area, protect viable residential neighborhoods and encourage economic growth, the city should undertake the following actions: 1. Continue implementing the city's capital improvement or replacement program and service provision to downtown neighborhoods in recognition of the commercial, residential and other land uses in the downtown area. 2. Continue city's commitment to facilitating affordable funds which preserve and promote an adequate supply of affordable housing opportunities in good condition. Such commitments should include consideration for an adequate supply of housing for special need population groups downtown, such as elderly, handicapped or low income persons. 3. Support strong crime prevention in the downtown. Participation by neighborhood organizations or other citizen groups is vital, as well as projects which encourage retention of homeownership, public improvements where necessary and appropriate education programs for police and citizens. Additional police enforcement activities need these community support efforts for overall success in reducing the area crime problem. 4. Encourage public and private markets to join together to develop and participate in funding strategies for purpose of appreciating the property values in the downtown or other projects to implement the Downtown Plan. Such efforts may include development of a financial plan and marketing strategies which involves participation from realtors, builders, property owners and public entities. 5. Develop a preservation policy to ensure protection of historically significant structures throughout the downtown and elsewhere in Yakima. 6. Maintain existing traffic patterns, where feasible, to minimize additional disruptions to residential areas. Changes to the arterial plan must consider the impact to existing neighborhoods. 7. Require parking facilities for new or redeveloped residential properties in the downtown parking exempt area. 8. Develop site and design controls for the downtown area that: a. Address additional buffering measures for existing neighborhood, b. Address potential locational impacts of new high density developments, and, c. Develop a downtown land use map which defines firm boundaries of neighborhood areas. 22 THE YAKIMA DOWNTOWN FUTURES PLAN: 1990 - 2000 The City of Yakima Yalama, Washington Urban Design Element Summer 1989 TABLE OF CONTENTS I. A Design Statement for Downtown Yakima Introduction Design Statement for Downtown Yakima Existing Features and Images Special Proposed Design Features & Images II. Places as Events Introduction Downtown Place Analysis Place Descriptions/Recommendations • Place 1: East Yakima Entry Gateway • Place 2: Agricultural Interpretative Center • Place 3: Convention Center • Place 4: Naches Avenue • Place 5: The Civic Center • Place 6: The Yakima Mall Superblock • Place 7: The Yakima Avenue Corridor • Place 8: Third Street Promenade Place 9: Front Street, Depot Square and Railroad Commons 10: The Warehouse Corridor 11: The 5th Avenue Corridor 12: 7th Avenue Commons 13: Summitview Center 14: St. Elizabeth Place and High School Place Place Place Place P1 ace Page(s) 1 - 8 1 1-2 4-5 6-8 9-41 9 10-11 12-16 12-14 14 14-15 17 17-18 18-28 29 30 34-36 36 37 38-39 39 Davis III. Streetscape Improvements • Streetscape Improvements • Yakima Avenue Landscaping • The 'Grove' Concept for Downtown Landscaping • Second Street Landscaping • Tree Lights • Monuments • Street Sculpture • Water as a Design Element • Fair Route Connector to Downtown ▪ Transit Transfer Facility 39-41 41-52 41-43 43-45 46 46 47 47 48 49 49 50 IV. Security and Shopper Comfort 51-52 V. Implementation ▪ Special Design • Implementation ▪ Part A: Part B: Part C: Part D: Districts Recommendations Organization & Responsibility Economic & Physical Design Improvements Regulatory Changes Key Funding Programs 53-74 54-55 56-74 56-59 60-64 65 66-74 ACKNOWLEDGEMENTS MAYOR Patricia A. Berndt CITY COUNCIL Clarence C. Barnett Lynn K. Buchanan Lynn A. Carmichael Henry C. Beauchamp, Jr. Gerald L. Roy Bernard Sims CITY MANAGER Richard A. Zais, Jr. ASSISTANT CITY MANAGER Frederick C. Stouder DIRECTOR, DEPARTMENT OF ECONOMIC & COMMUNITY DEVELOPMENT Glenn K. Rice PLANNING STAFF Donald S. Skone Larry Lehman John Haddix Joan Davenport CONSULTANT Kasprisin Design Group 5048 21st Avenue, NE Seattle, WA 98105 (206) 328-0900 SUBCONSULTANT Raj Joshi & Associates Seattle, WA the yakima .downtown futures plan 1988 to 2010 The City of Yakima Yakima, Washington Summer 1989 project manager: Larry Lehman prepared for. THE CITY OF YAKIMA prepared by: urban design element THE KASPRISIN DESIGN GROUP /Raj Joshi Associates Seattle, Washington retail market element BUCHER WILLIS & RATLIFF Kansas City, Missouri transportation element THE TRANSPO GROUP Bellevue, Washington DESIGN STATEMENT FOR DOWNTOWN YAXIMA CITY OF YAKIMA CA CPO 14,, in 42) c. con_ -_. _ - .. , . -- '- 7.: ,c,7 -- - „"6. frs: ...-.. f - r. .............r.....,7„.......;zo.,,,,,,,warsaty-se...possragr."..-assmattonoset i '' 1 ' - ' incoln -,-. „._ 1 , .., ,,,,.,„; ,, ,;f',1--. ;+.-7 ':. -.'-' -11-1 :444444:,':-•.;‘4,12:12;,:...,,. : ''',."7 ''''j F7'L." 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L • '101 t".12.11.±-1e.d1f,1 I SO 3 0 POO scelc Icet map soup.. kaspnun 4riwn 10Pup J" TTRODUCTION 'Why is Urban Design so important to a community? Urban design is the act of enclosing space; or, providing the setting for urban activities, services ,and behaviors in a manner which is beneficial to the residents of a community. Urban design gives physical form to economic, social, functional and political actions. The success of the urban design enclosure for these actions depends strongly on comrnunity motivation and follow-through. In American cities, our expectations of quality of life are high but the physical form of our cities tend to be mediocre and expediently assembled. Agreement on a design statement which reflects the stated concerns of residents, business people, and city leaders will go far in elevating the quality of Yakima's downtown. Because urban areas are so diverse and varied in their activities and physical form, it is difficult to arrive at a single statement of design which represents the entire community. Most communities are a collection of smaller design images which contribute to the overall attractiveness of the area. A design statement for these communities, in actuality, consists of a series of pleasant events, a wholesome identity, nostalgia, the f 'g or sensation of softness or well-being, h ighted by symbols of formality and authority in various forms and spaces throughout a downtown area, and continuity with the past, with family members, friends, and periods in history. Yakima is such a place, envisioned by residents as a wholesome place; a place which people can relate to without being overwhelmed by its scale. The Urban Design element of the Yakima Downtown Futures Plan addresses the issue of an overall community image for Yakima, one with its origins throughout the Valley, as well as in the urban symbols of the downtown. The Urban Design Plan demonstrates that a community -wide design statement exists which is locally relevant and applicable to the downtown area; and, one which can be improved upon and expanded to give the City of Yakima and its downtown a truly unique image. 3 DESIGN STATEMENT FOR DOVVNR N YAKIMA The DESIGN STATEMENT for Downtown Yakima emanates from a unique regional image, and is translated to specific design improvements on a block by block basis throughout downtown. Downtown Yakima should be designed as 1) the urban center for a famous agricultural region; and 2) as an irrigated desert, fertile and in sharp contrast to the surrounding terrain. The GENERAL DESIGN STATEMENT for Downtown Yakima is comprised of the following elements: o Downtown is a regional cultural center for the agricultrual resources of the Valley; o Downtown is the major resource center for the valley, offering comfort, convenience, and resources; o Downtown is a quiltwork of special spatial events, offering the valley residents and v isitors multiple destinations and attractions; o Downtown is a series of high quality architectural buildings and artifacts which are observable design statements each in its own right and each contributing to a larger collaborative image; historic buildings can be preserved and contemporary new buildings can be designed in a compatible manner with the historic buildings. o Downtown is a series of repetitive open spaces designed as gardens and groves all reflecting the agricultural industry of the Valley; agri-forms from orchards to hops fields can be used as design images. o Downtown is a 'formal' architectural statement, differing from the peripheral retail centers through its masonry strength and classic styles; O Downtown is a safe, comfortable pedestrian area emerging as an indoor -outdoor sequence of spaces; enclosed and semi -enclosed spaces for public benefit can add a new dimension to the consumers' perception of downtown. O Downtown is a major festival area, characterized by a central promenade or commons type of design which is the focal point for downtown. • Downtown is a series of special street sculptures repeated throughout downtown ranging in scale from thirty (30) feet high pieces at the gateways to fifteen (15) feet high pieces along Yakima Avenue; O Downtown is a unified decorative motif, highlighted by special districts, incorporating tree lighting, building banners, pedestrian lightings with ornate historic fixtures, and innovative signage; O Downtown is a feeling of comfort, safety, and convenience brought about by shelters, information booths, and signs, valet service, security lighting, observable crime prevention measures, and accessible parking and pedestrian load zones. EXISTING FEAT I ES SPECIFIC ELEMENTS of Yakima's Design Statement include the following: ° The downtown area is characterized by brick and stone masonry buildings which provide a formal scale highlighted by special masonry detailing, and building elevation proportions. 4 O Architecturally and historically si" 'pica buildings exist on both the east we sides of downtown which form the uasis an architectural image.' These buildini include woodframe residential structures ar masonry commercial and institution structures. They are both dispers' individually throughout the downtown well as grouped in recognizable distric such as North Front Street. o The Larsen Building and the Great Weste' Building combine mass height, mason' materials and architectural style into ti two most significant landmarks in downtowr The Larsen building is observable from ti freeways as well as throughout downtov and the Great Western Building highligh the Yakima Mall block, but is significa' beyond its relationship to the Mall. 1 11 noff 14000 0,01 ilig9vl.�;�* � �119 SO II IIIII '/41 NS 7ail I - OM§ MIEN III larsen building • \k\\ Ce o The architectural forms and details from historic buildings, existing and demolished, form a potential resource for new or reconstructed buildings in downtown. O There are several distinct districts or sub -areas of both east and west downtown which have a definitive architectural image then in style, scale, and/or material compatibility. These districts are as fol lows : Naches Avenue. This formal landscaped parkway or boulevard is a linear green space aligned perpendicular to the main traffic flows into and out of downtown. It serves as the center piece for a linear double loaded corridor of stately residences and public and semi -private use masonry structures. The boulevard also acts as a gateway to the high intensity, retail district west of Naches Avenue. Yakima Mall. The Mall complex encompases two full City blocks and is identifiable by its overall massing and height; by the Great Western Building on E. Yakima Ave- nue at 4th Street and by the dominance of its attached parkway garage. The arch- itectural style of Yakima Mall, with the exception of the Great Western Building is not a contributor to downtown Yakima's design image due to its varied design and an overall lack of design continuity and style. The Mall face along Yakima Avenue has recently been remodeled to west of the Great Western Building, dramatically improving this section of the Mall. E. Yakima Avenue (2nd to 4th). East Yak- ima Avenue between 2nd Street and 4th Street is a 100 foot wide right-of-way lined with two eight story masonry structures dating back to the early part of the twentieth century. This formal, period style collection of buildings include the Larsen Building, the Hawkes Building, remnants of the Yakima Hotel Building, the Commercial Building, and The Great Western Building and smaller less prominent but contributing masonry buildings. These form the basis for an image of stability, history and formality not observable in most contemporary buildings. 5 Third Street("A" Street to Chestnut Street). e same analysis applies to First Street as for E. Yakima Avenue, i.e., a formal architectural image exists in the present building stock. The contributing buildings include the Capitol Theatre, the Federal Building, and the west block face between E. Yakima Avenue and "A" Street. Government Center. The Yakima County Courthouse, the Yakima City Hall, and nearby educational buildings combine to form a government center. North Front Street Area. The North Front Street area is a perceivable collection of historic and architecturally significant buildings together portraying a district image. Fruit Industry Office/Warehouse District. This district is more synonomous of Yakima than perhaps the Yakima Mall, the types of buildings, their massing, scale and historic uses portray a definite visual image to residents and visitors. The brick office buildings along W. Yakima Avenue and complemented by the larger warehouse structures are located based on historic functions of trade and relationship to the railroad corridor. St. Elizabeth/Davis H.S./First Presbyter- ian Church. The western periphery of the downtown area is highlighted by an impressive collection of institutional and religious architectural symbols which establish a lasting character for the downtown entry/exit along West Yakima. The First Presbyterian Church is the most significant architectural building west of the Larson and the Great Western Buildings. The setting and visual access for both pedestrians and passersby in vehicles to this and other prominent buildings needs to be protected and improved as the benefits will spill over into the entire downtown. First impressions are lasting impressions. SPECIAL PROPOSED DESIGN FEATURES AND IMAGES Based upon the quality building downtown, there are special/design recommended in the Urban Design or strengthen the overall Design are: stock available in features which are Plan which add to Statement. These The Yakima Grove. The Yakima Grove is an open space system distributed throughout east and west downtown and composed of exterior and/or enclosed pedestrian areas characterized by landscaped groves of indigenous trees from the Yakima Valley. These are described in detail in later chapters. Third Street Promenade and Commons. This is a pedestrian orieae-a space which extends along 3rd Street from Chestnut Street to the west side of the Mercy Block on E. Yakima Avenue. The space consists of an outdoor promenade between Chestnut Street and the alley south of the Yakima Hotel site, i . Ir N an enclosed pedestrian space on the Yaki Ho site, and an open and enclosed commons on t ler Block. Together, they from the new open spa 'heart' of the eastside retail core. Yakima Mall Commons. An enclosed commons area recommended at the 4th Street entrance to Yakil Mall atthe present plaza site. The commons wot contain exhibit space, festival areas and landscapii highlighted by a grove of ornamental fruit tree East and West Yakima Avenue. Yakima Avenue fr( stFI Avenue to Naches Boulevard is and will rema the main commercial spine of the downtown. A speci landscape treatment for Yakima Avenue w strengthen the design statement between east ar west sides, using street sculpture, groves of tree and enclosed open space. Summitview Commons. This oper, space area on ti westside of downtown is the focal point for business retail and residential areas in the vicinity Surnmitview. It adds a destination place to tt westside, needed green space and identity. es ••• uI • 4 111 Um ?MI P Ill•_ R 6e 4 1 1 I2 h i n +.a .. = o" yir 2 41tivz re in •im 1 �I ■ K-1" op; 1 X.▪ 11 or . " 7 q a •H_ aro ex. H▪ IS ▪ ra e 3 : 06 I. :. - r.• ■ o si . • ing J. r.2 = ;IMO10a Asa DOWNTOWN BUILDING PATTERN...a result of agri—industry and the railroads 6 ..!1 -IP!. project area uuj" IhhhhhI mommanurall.... 11111111111111 41PIEMPRIPVISIMININ VIEW c.---- J - — 4!. dtsigtt ttrtit,p CITY OF YAKIMA 0 3200 2400 scale in feet 7 Yakima Skywalk and Enclosed Pedestrian Areas. A new skywalk system is recommended to connect the Yakima Mall to adjacent new developments in order to establish a second level retail function. The skywalk and related vertical mixing spaces (enclosed pedestrian areas) will add a design image for consumers and other users of the downtown regarding safety and convenience of shopping. New Architecture, New architecture should not mimic or copy historic forms and elements. Conversely, new architecture can and should incorporate the massing„ scale, proportions and materials of historic buildings into new contemporary designs. 1 i 1 ,,IT, 1' I . 'I i '11-`1, IMI f ›1' 'fig ," 11i 1Ad.1}1 1 t'1li, it l'I �, � aair -mi® I I` t, ci.1 i �� I o r� r it: t. 'l'`i ) ! 4,_� 1kt�,' I III , I, «Li1 n.Il : !„. I' ti l 11 H 7' ' II1' ;I I ... . 'II'I'i1 �1 11l 11 roil 1 I I .-:--VileS t VI , �. a1 11 ) i 'i"X 11 1 ' , :, l 11 II c In li t I' I I: 1 I -1,.,i i'1 ',;Iii` 1 1 I, I II 1;1, j c 1 1II 114! 11,1 11 `11. 0 - 1) �1i�; l I� ,l ji' l � �' 1. .1-c'I 1 lll''II, fI. 6'J ;''I,I I t 1 I `," 1 I III • I ��' '' li lul u III lir Lj1 ch' 8 �= ISII 3511 hop project an ale in feet mal, wxin._ Lottwte,n design gnwl, _ LACES AS EVENTS 9 CITY OF YAKIMA INTRODUCTION As a foundation for a Design Statement, the downtown needs to be identified according to those areas within the dowtown that make it special or distinctive. The public and private -for -public spaces in the downtown are more than allocated square footage set aside for specific functions. They are "places" in which human beings inhabit, circulate and interact. They require a wholistic or comprehensive design approach. A "place" should be a positive space, connected visually to origin and destination points, and a place where events occur, events which promote and support human interaction whether on a small scale or a large group situation. This Chapter identifies and describes a series of "places" throughout the downtown area which have been identified as special "event -places". Once the pedestrian enters the downtown, the large urban contrast is replaced with the busy, rural, sometimes cluttered foreground and midground scales. The foreground is what the observer (pedestrian or driver) experiences immediately. it is the priority view for safety and orientation. The midground scale is the next level of priority where direction, information and orientation are observed (the Mall complex in the distance or a parking lot observed a block away between two foreground buildings). The background is the composite of higher buildings, towers, signs, and surrounding terrain. Therefore, it is necessary to establish "places" within the urban downtown which provide respites, pauses, sources of information, divergences and passive and active activities for people as they confront the multiple planes, colors, textures, masses, etc., of their immediate surroundings. Downtown Place Analysis This section identifies both existing and potential "places" throughout the downtown. Their characteristics include indoor or outdoor space which has public use potential, is enclosed in some manner and is associated with significant land use attractions or magnets; and include, significant buildings and artifacts which are identified along with the settings or space around each, creating "places". 10 Based on field observations, interviews a..., ai analysis of the physical and activity pattern throughout the downtown area, fourteen separate "places" have been identified which are considered ti be the critical components of the downtown core They are as follows: 1. East entry parkway along Yakima Avenui 2. An agri-culturual resource park 3. The Convention Center Complex 4. Naches Boulevard 5. The Civic Center 6. The Mall Super Block/The Mercy Blocl4 7, The Yakima Avenue corridor 8. The Third Street. Promenade and CommonE 9. Front Street, Depot Square, and Railroac Commons 10. The Warehouse Corridor 11. 5th Avenue Corridor 12. 7th Avenue Commons 13. Summitview Center 14. St. Elizabeth Place/Davis High School E surrounding area Each "place" constitutes a separate and distinct activity area within the downtown. Each represent destination places or are particular gateways to other "places". Many of these qualify as "events -places" where special activities and attractions do and can occur. There certainly are additional smaller scale special places throughout the downtown and th, are by no means excluded from this list. They ' in many cases, comprised of the many individual buildings or small groups of buildings that are considered to be historical and/or architecturally significant. These include residential structures, churches, public and serni-public buildings. A final component that needs to be considered is the connection between these fourteen "places". These connections or links are important because in any given situation, the observer, whether he or she is a visitor, consumer, employee or resident, will most likely travel between one to three of the special "event -places" on a given day. So, the linkages or connections become very important, not necessarily places to be adorned or made special in their design, but which need to be convenient, clearly marked and well identified as people move from "place" to "place". These fourteen "places" become the basis for future detailed urban design plans; and, as a means of selectively implementing an overall Design Statement. I "MI t r •it • I a' F ttisc• 44424 1.11 lir..pn r"--= 5th ave .1\mi n 1111, ▪ • k. rd st n „..t..isi of ‘,.‘1--wsi(\...,\ IN' ct ifit*In 4 4 t 8 t 3 ss 167a-0 ‘11 lie ma o • 6 „ 'PLACE DESCRIPTIONS /RECO DATIONS PLACE 1: East Yakima Entry Gateway. This report recommends the development of an entry gateway area along East Yakima Avenue in the vicinity of the 1-82 interchange. The east entry to downtown Yakima is characterized by a hotel/motel/civic center complex to the north of Yakima Avenue and by a residential and low rise commercial district on the south side of Yakima Avenue. This is a particularly important entry to the downtown area in that it is a strong visitor entry based on the hotel/motel situation and the convention center. In order to create a gateway to the City, the following recommendations are made: A. RECOMMENDATION: CONSTRUCT A "GATEWAY PARK". Beginning at the intersection of 9th Street and Yakima Avenue and extending along the south side of Yakima Avenue for approximately a block to a block and a half to the east, a gateway park should be phased in replacing the existing vacant lots, single-family residences and low rise commercial or Tight industrial buildings. This gateway park would consist of a landscaped area including grassy surfaces and low flowering shrubs; it would be used as a neighborhood park and parking could be provided along Pitcher Street. This park would form the foreground for other entry design elements in the same area. B. RECOMMENDATION: CONSTRUCT "ENTRY SCULPTURES". At the intersection of 9th and Yakima, two sets of entry sculptures with reflective metal surfaces should be located to form a physical gateway, the official gateway to the City and downtown. One set should be constructed at the westerly end of the "Gateway Park" at the southeast corner of 9th Street and Yakima Avenue. A matching sculpture should be located at the nothwest corner of 8th and Yakima, adjacent to the Convention Center. This reflected entry sculpture is proposed to be a metal structure designed by local artists through a local competition and would stand approximately 30 feet high by 30 feet long by ten feet wide. The nature of this sculpture may vary depending on the final design competition 12 for local artists, but it is recommended that it be a metal structure, porous or transparent, and yet consisting of reflective surfacing which will pick up the various light during the course of a given day. The sculpture at the intersection of No. 8th Street and Yakima could be either larger or smaller. It should, however, be of the same material and design as its matching pair. C. RECOMMENDATION: ESTABLISH "GATEWAY" COLUMN OF STREET TREES. In addition to the gateway and reflective entry sculptures, the East Yakima entry should also be highlighted by columnar type trees. They would be located in and around the convention center grounds, convention center parking lot, and in the East Yakima entry parkway. They should be located in such a way as not to block visual access of the convention center building from the east, particularly at the 9th Street intersection. D. RECOMMENDATION: EXPAND PARK -LIKE LAWN AREA ALONG GATEWAY. Park -like landscaping should be expanded along the corridor between No. 6th Street and the Holiday Inn area. This would greatly reduce the unattractive paving surfaces which predc 'te in that area with the many parking lots. ie landscaped area in front of the Holiday Inn and in front of the convention center are the main landscaped areas that presently exist. Landscaped areas in front of the convention center parkiny lot between 8th and 9th Streets could be expanded, and landscaping along the south side of Yakima Avenue should be included in any future development. Native groundcovers needing only limited maintenance may also be appropriate in some areas. A sense of greenery and soft natural materials such as grass and low rise shrubs is very important for the initial impression of the visitor entering the Yakima area. Again, the image that the visitor obtains when approaching the City from 1-82 and Highways 410 and 97 and observes the contrast between the barren ground landscape and the verdant urban area must be continued at the entry points. This is best accomplished with the use of landscaping in terms of grassy areas, flowering shrubs and well placed street and decorative trees. • 13 PLACE 2: The Agricultural interpretive Center. RECOMMENDATION: CONSTRUCT AGRICULTURAL CENTER. This report recommends expansion of the hotel/ entertainment district opportunities. One proposal for accomplishing this is the development of a Agri -Cultural Center or festival grounds at the north of Yakima Avenue immediately west of 1-82 between the highway and the Holiday Inn complex. This area ranges in size from a six block area to a 12 block area constituting over 49 acres of potential development land. The concept support;ng the agri-cultural intrepretive center is based on the desire to incorporate the agricultural industry of the Yakima Valley, from fruit and produce to wine making, to hops and barley, into the downtown and convention center functions as a tourist destination facility. This center would in no way compete with the Sun -Dome being planned for the Fairgrounds, but rather augment it. It is designed as a tourism information center encouraging visitors to corne in from the highway and experience the exhibits and displays relating to the agricultural industry of the area, arranged in a park -like setting. From two to four or more small building complexes the size of large residential structures could be built within this area to house the various industry representatives and displays, exhibits. lectures, etc. on the nature of production and processing of their particular industry. The grounds could be a visitor park characterized by groves of trees and other agricultural -forms products that are found throughout the Yakima Valley. Features would include picnic areas, rest stops, limited short term RV facilities, i.e., dump stations, tot lots and visitor parking. It could be connected to the arboretum system, as well as via shuttlebus to the fairgrounds and the agricultural exposition center. This facility could also incorporate the local school district in its operation and maintenance. Classes from elementary and high schools could take respon- sibility for certain groves of trees or certain types of produce under the supervision of industry representatives. Particular groves could be identified by each graduating class or school. It also provides an educational facility for area youngsters. As an option to constructing new buildings to house the interpretive centers for the various industries, the City of Yakima and a semi-public group which would be responsible for developing the agricultural 14 center could cooperate with the Yakima Historical Society and obtain, either through donation or ' `ed purchases, historic structures in danger of der on due to development within the surrounding a, eas. Those buildings could be relocated to this site and incorporated as a part of the agricultural center. For example: there is enough land for an old residential structure or structures and some farm and accessory buildings which have historical and/or architectural value. These could be placed in a complex or compound fashion and would be very relevant to the overall nature of the orchard grove/hops field type of landscaping that is recommended for this site. The site then becomes an educational facility and a potential destination point for historic or architectural structures which are in danger of being lost due to development. It would also serve as a visitor destination facility, park area, rest stop and information center. PLACE 3: Convention Center. RECOMMENDATION: CONSIDER CONSTRUCTION OF NEW LARGER CONVENTION CENTER OR EXPANSION OF EXISTING CENTER, The Convention Center (Yakima Center) facility is a very important resource for the hotel/entertainment and visitor industry of downtown Yakima. It is presently limited in terms of expansion by the Holiday Inn on the east and the Towne Plaza site on the west. If a larger facility were desired, the Con ion Center has two options, relocation or expansic. 1) it could relocate constructing larger facilities within the grounds of the agri-cultural interpretive center (Place 1); or 2) it could expand through construction of new buildings, either to the east across No. 8th Street or on the north side of the existing building. The difficulty with going east across 8th Street is the heavy traffic flow, but with proper signalization and pedestrian crossing demarcations, this site could be useful for the convention center expansion. It is the recommendation of this study, however, that the convention center management consider expansion of its facilities to the east within the agri-cultural interpretive center and festival grounds area. This combined facility, along with the Holiday Inn and Towne Plaza facilities could become a very strong tourism destination complete with indoor and outdoor exhibits, space and public play areas that could in effect make Yakima a significant stopover for tourists along the 1-82 corridor. columnar ty agri-cultural festival grounds (winery/fruit tastir ,-exhibits) fe ti mc trd: an trees n 4 al',1 •u • hoi,‘y inn ;.. get 4.111111111 11 tone kaza ' '--- e. Yakima ave conve ri Dry key development p chestnut g3 o reA5j •ret ective eni 1 .ttut „. ! 40 1.'44 wo.21. fr-cr- 4177' E ig 1 •37. 0.1. sh,. B 1 8114 C23 e - 1-1 " I type. tr 'es 6 licolumi itr 4.. ---,.,... ,a4kr•R,,,, I U170 .'i4,-- ' ' ' - . ... 1 LI foodstore -77- /9--; 1 \ O \ _ - =on E. YAKIMA ENTRY GREENWAY*\ AGRI-CUErultAL FESTIVAL GR 15 FuTh ti LLE 11 1= trees LI -agri—cultural festival grounds (winery/fruit tasting—exhibits) festiv., ea isp ay or, trds cnic air ‘1' 111'; NO, hoi ay inn 11 I 2 g9 - 4 4 ok " 414441k- r ay, 414 • _ Ire • 40g a do I -4,1;111.1111144,4400,1t, fie- • • V:414,41)14., ...I Iota • 411.. Olt igk a- .1. ;. ,-,....i...: 0 c_,CDEzD 711.4 E. YAKIMA ENTRY GREENWA AGRI—CULTURAL FESTIVAL GR 16 DS PLACE 4: Naches Avenue. RECOMMENDATIONS: 1) PROHIBIT REMOVAL OF THE LANDSCAPED AREAS OF THE BOULEVARD AND EN- COURAGE CONSTRUCTION OF NEW MONUMENTS; AND 2) ESTABLISH ZONING AND/OR DESIGN GUIDELINES TO ENCOURAGE RENOVATION OF EXISTING STRUCTURES, AND TO ASSURE THAT NEW DEVELOPMENT IS COMPATIBLE WITH CURRENT AND HISTORICAL NACRES AVENUE DESIGN. This report recommends that the Naches Avenue boulevard design be maintained and preserved in a manner reflecting its existing or original design. This could include the construction of monuments or sculptures typical of the era in which Naches Avenue was developed. Naches Avenue is an existing parkway or landscaped boulevard. A number of public and semi-public facilities such as churches and the YMCA/YWCA are located along the edges of the Boulevard. Many of these structures, particularly the churches are significant for their historical and/or architectural characteristics. Consequently, this streetis a formal, landscaped boulevard containing attractive and significant buildings and other artifacts (including statues) which constitutes a secondary entrance to the Yakima downtown area. It is, in reality, a dividing line between the hotel/motel/entertainment complex and the prime retail area of Yakima. PLACE 5: The Civic Center. RECOMMENDATION: CONSIDER FURTHER DEVELOP- MENT OF CIVIC CENTER COMPLEX. The area between 2nd and 3rd Streets and between "A" Street and Lincoln Avenue has been developed as a Civic Center for local government officials and public services containing offices for the City of Yakima; Yakima County, and the Yakima Regional Public Library. There are at least 11 additional structures in this area which are historical and/or architecturally significant, adding a sense of history and permanence to this area. The government center has a design statement characterized by a formal architecture composed mostly of brick and/or stone structures highlighted with substantial street trees along most of the numbered streets. This "place" generates a lot of public activity as well as a substantial employment center for people in the downtown. Expansion of local government facilities has been discussed in recent years. Such expansion is difficult because the area is already so fully developed. One possible option for municipal center expansion would be to purchase the Seattle -First National Bank facility if and when the bank chooses to relocate its facility to another location within the downtown area. This would provide the additional office space, would allow the municipal center to occupy the entire half block between "A" and "B" Streets, and would better orient visitor and employee traffic. 44rit0 17 CITY HALL BLOCK Option One A second option is expansion to the northwest, north of "B" Street and west of 2nd St. This site is presently occupied by the remains of a building recently destroyed by fire. Even with removal of that building there is only sufficient land for construction of a new facility with a limited square footage. A third option is the land in the northeast quadrant of the North 1st Street and "B" Street intersection presently owned by the County. This could be developed if an intergovernmental arrangement could be established. A fourth option is to consider relocation to a new area. One suggested area for relocation is the CITY I 1ALLL BLOCK Option JI\ undeveloped land north of Walnut between 1st Avenue and 2nd Avenue. If options two or three provide insufficient new office area, a new two-story structure with ground level parking and second floor offices could be built on the City Hall Parking Lot at 3rd and "B" Street as depicted in the "City Hall Expansion Options" illustration. PLACE 6: The Yakima Mall Superblock. RECOMMENDATION: STRENGTHEN "URBAN DESIGN" OF YAKIMA MALL. The Yakima Mali is the major enclosed shopping facility in Central Washington. Constructed in the early 1970's, the Mall complex occupies an area from Naches Boulevard to 3rd Street, and from "A" Street Yakima Avenue. The facility consists of an interior enclosed Mall incorporating a number of older existing buildings. Unique among these buildings is the Great -Western Building, an architecturally significant historic structure located at the northwest inter- section of 4th Street and Yakima Avenue, the southern most major entrance to the Mall, The Mall contains three major department stores: The Bon, Penney's, and Mervyn's. A three-level parking garage was constructed as part of the Mall complex on the northern edge of the facility along "A" Street. This parking garage has ramp access from "A" Street, as well as a service ramp facility to the basement level from "A" Street. 18 The design character of the Mali is not unifier its architecture, resulting from the construction revN facilities around existing older commercial structures. The department stores all have separate exterior images. Penney's and Mervyn's brick structures are more recent in vintage than The Bon and together represent the eastern design motif of the complex. The facades along Yakima Avenue from 4th Street to 3rd Street and from along 3rd Street from Yakima Avenue to The Eton store are made up of individualized older facades relating to the pre -1960's before the Mall was constructed. To the observer, particularly along Yakima Avenue and 3rd Street facade, the Mall does not appear to be a single entity. Instead, it appears to be a series of older individual storefronts or building facades. The only significant architectural statement is that of the Great -Western Building located on Yakima Avenue. The Mall is a major retail resource for downtown Yakima. It is the only "superbiock" for both east and west sides of the downtown. The success of the entire downtown depends very much upon the continued success of the Mall. Some options investigated for expansion of the Mall included new development westward along Yakima Avenue to First Street connecting the entire complex with a skyway system. Another option involved the expansion of the Mall facility to the north of "A" Street between Naches and 4th Street, possibly restructuring the existing parking garage ramps. The eastside retail area is strengthen, by the rnall. Extension of the enclosed shopping area to adjacent blocks is deem- ed necessary for ,the physical success of this portion of the downtown. Skyways are recommended, at a minimum, for the blocks north, west, and southwest of the mall as new developments occur. Some of the urban design needs related to the Mall include: 1) a unifying exterior design statement for the entire complex, ari architectural statement which reflects Yakima; 2) an improvement of vehicular access in and out of the Mall garage; 3) the connection of the Mali complex to adjacent. developments with enclosed pedestrian passages; 4) strengthening the image of the Mall entrances; and 5) future expansion of the Mall complex itself. 1 k) parking deck wl1st fl. retail skyways continued streettree program mall extension north -4 yakima mall 0 100 300 ft 19 50 200 source: kasprisin design group yakima hotel site -third st. promenade/ commons -- • new parking deck wlpark setback special groves of oma -nial trees critical skyways (1,n) 20 strengthen ground floor retail factors will determine the exact nature of jes to the Mall complex. These factors include ti. econoinic development objectives of the Mall ownership; the actions of adjacent property owners surrounding the Mall; and agreements between the City and the private sector regarding the construction, financing and use of enclosed skyways over public rights of way. The following recommendations are intended to stimulate decisions regarding feasible options. They are described as follows: 1. Exterior Design. RECOMMENDATION: DE- VELOP UNIF INC EXTERIOR MALL DESIGN USING THE "GREAT -WESTERN" BUILDING AS THE ARCHITECTURAL CATALYST. Redesign the exterior envelope of the Mall complex, in a phased manner to represent a single building. The Great -Western Building represents a formal design statement that is unique to Yakima. The Mall should reflect this classic architectural form using contemporary design which incorporates the scale, order and sense of detail present in the older buildings. The Great -Western Building should be completely restored and used as the architectural catalyst for the Mall redesign influencing the new architecture for the rest of the Mali. Improvements to the exterior of the trees and tree lights brick/formal image translucent canopy design at corner, minimum articulated pedestrian cross third st. as a formal brick, stone and glass pedestrian 'place' pedestrian lights 21 Mall complex along 3rd Street and East Yakima Ave. could incorporate masonry, glass and steel in a contemporary fashion to create a very formal design smtemant. The accompaying sketch at 3rd and Yakima indicates a brick formal image with a translucent canopy design at the corner to allow for a comfortable, convenient pedestrian environment along the east side of 3rd Street with pedestrian lights and an articulated pedestrian crosying. This could be continued throughout the length of the Mall complex along Yakima Avenue, uniting the entire complex with a design that is not generic, but representative of the various turn of the century masonry styles evident throughout downtown Yakima. Z. Enclosed Pedes,rian "Places". RECOMMEN- DATION: INCLUDE CONSTRUCTION OF ENCLOSED PEDESTRIAN "PLACES" IN FUTURE MALL REDESIGN PLANS. Redesign the Mall exterior with enclosed or semi -enclosed pedestrian "places" at the intersections of 3rd and '/A«' 3rd and ~�^�~� nar � � / II I I k I U � �~~~~~~~~��__-~_-~_~� I k t r_____�~_~_~�~~_��~~_ Yakima' the intersection of Naches and Yakima,, and at the 4th Street Mall entrance. These are 'entry impact' areas for consumers and provide comfortable dimabzod mixing places for peUestrians. This assumes that in the future Mervyn's Department Store will expand to the east in that area presently utilized as a surface parking lot' Each one of these areas should provide escalator service to upper and lower floors so that the transition for pedestrians from level to level is convenient and comfortable. Of particular importance is the entrance at the 3rd St. and Yakima Avenue side of the Mall. The interior space at that intersection relates directly to the Mercy Block, the Yakima Hotel site, and the old Commercial Building Site, all potential redevelopment parcels. This is a key pedestrian interior mixing space for all of these adjacent sites. 'drop _ enclosed open /entry Yal~ nia Avenue 22 3. Mall Court. RECOMMENDATION: DEVELOP MALL COURT. The Mall Court at 4th St. and Yakima is an opportunity that should be taken advantage of over time to create an enclosed ciimatized pedestrian mixing space that would serve a number of functions: 1) it would provide a year-round interior space for use by the shopping public; 2) it would provide enclosed space that is easier to secure; 3) it would provide a space that would allow escalator access from the Mali court surface to the upper level parking decks of the Mali Parking Garage, thus making consumer access to and use of the Parking Garage safer, more convenient and therefore more desirable. The Mali court could be composed of an enclosed translucent canopy which would be approximately two to four stories in height and which could be stepped back away from the Great -Western Building's eastern facade so that the canopy would not negatively impact the architecture and scale of the Great -Western Building. Within the canopy, a grove of trees could be planted which would be in keeping with the overall grove concept and design statement occuring throughout the downtown area in selected pedestrian mixing places. It could also include newstands, spaces for temporary exhibits of Mall tenants as well as the escalator access to the second and third levels of the parking garage. This is a very importantt space and one which the City and property owners should consider as a priority project in the near future. translucent enclosure section a -a 23 MERVYN'S This illustrated overhead view depicts a drove of trees, the pedestrian area, the escalators and newsstands, etc. The THF, L drawing on page 23 illustrating a one translucent canopy escalator connections depicts the same area to four story hic over the space wi, to the upper parking escalators to garage (1 set min.) -17 MERVYN' S OW'• !_ ta 24 4_ Skyway Connections. RECOMMENDATION: [DEVELOP MALL SKYWALK CONNECTIONS WITH ADJACENT RETAIL BUILDINGS. Another aspect of the Mall superblock is its connections to adjacent compatible retail functions. Of the numerous potential second level skyways the Mercy Block -Mall connection and the Mall -Nordstrom connection are recommended as the first priority. Regardless of the type of development that would occur on the Mercy Block, whether that function is a new department store, a specialty shop complex, possibly a new hotel complex, office building, etc., it should be directly connected to the Mall via a second level skyway over 3rd Street in the approximate location of the existing alley that is parallel to Yakima and just north of the Mercy property. Each terminus of the skyway should be served by escalators to make the system work. The Nordstrom connection should be a direct connection from store to store. The second priority for skywalks include connections between the Mall and Chinook Tower and between the Mall and development north of "A" Street. 5- Mercy Block. RECOMMENDATION: DE- VELOP MERCY BLOCK AS EXTENSION OF INTENSE COMMERCIAL/RETAIL ACTIVITY. The Mercy Block is important to the overall development of the downtown because of its location and availability. The block could be developed as an extension of the Yakima Mall regarding retail uses or it could be developed as a separate magnet use such as a hotel conference/retail complex because of its location to the Yakima Mall. A number of options are available for the physical configuration of buildings on that site, improving the function of that property as well as interacting with the other important adjacent uses. 25 Option 1 for the Mercy Block, consists of a 50,000 to 80,000 sq. ft. two story depart- ment store complex connected via a skyway to the existing Mall complex. The building corner at the intersection of 3rd Street and East Yakima should be articulated in such a way as to draw the pedestrian's attention to the complex and to create a comfortable, convenient access point. Option 2 consists of a world headquarters building for the fruit, vegetable and wine industries in the valley, supplemented by an exhibit and interpretive center. A unique design feature could include interior enclosed groves of fruit trees and a water feature such as fountains. Option 3 is a speciality shop complex and office or hotel facility. krgalyieeel ;611firefhle 4,14,1Ave,,s%44/4.!..all department store massing corner transparent entry, pedestrian 'place° -,interior-exterior visiliity ) 0 it04740;496101. 0.0 off option 1: department store comple larsen building indoor courtyard outdoor plaza/orchard --agri—cultural center exhibits offices/restaurant _,. Pfflignardi • _ /sal '1fell/ pedestrian concourse VI skywalk • source: kaspri, in design group option 2: agri—industry headquarters/ shops 27 Yakima Hotel site and MercyBlock should be reflective of each other in design, plazas and builchn,g massing '1044004(.0000401400 offices/cultural center specialty shops regairant increased pedestrian interior open space access to upper storey open plazas grade levr,1 'place second level orchard 'place° 28 option 3: shopslofficeslhotel PLACE 7: The Yakima Avenue Corridor. kc.COMMENDATION: STRENGTHEN FUNCTION OF YAKIMA AVENUE AS THE PRIMARY LINK FOR DOWNTOWN RETAIL ACTIVITY. Yakima Avenue is the primary connection between east and west sides of the downtown. It is characterized by a 100 foot right-of-way from the freeway entrance ramp east of 10th Street to Summitview Avenue on the west. For Yakima Avenue to remain the major Zink for downtown, and for it to serve as a special "place" significant changes need to occur along its length: 1. RECOMMENDATION: MAKE PEDESTRIAN AREAS MORE CONVENIENT AND COM- FORTABLE. a. Downtown pedestrian areas require more convenient and comfortable facilities for street side retail business to compete with indoor retail malls. These convenience and comfort facilities include wind and precipitation shelters, not necessarily restricted to bus transit locations; additional pedestrian information areas; seating; drop-off pick-up zones for consumers; and protected canopies. b. Pedestrian area aesthetics should be upgraded with additional street trees, sidewalk sculpture, decorated banners and logos for retail outlets and intersection area treatments such as special paving, bollards and planters. 2. RECOMMENDATION: IMPROVE STREET - SIDE ASTHETICS. a. Off-street parking lots facing Yakima Avenue should be landscaped with a five-foot minimum wide planting strip between the parking lot and the sidewalk. b. A shift should occur to more enclosed private -for -public use open space areas related to retail and other commercial outlets. Whether these occur on the densely developed 29 eastside or on the westside, they should be incorporated into or along store fronts wherever possible and they should always be visible from the street for consumer orientation and identification. c. The street sculpture should be consistent in overall concept and material, but different in color, signage and size for different areas of Yakima Avenue. Specifically, the West Yakima corridor should receive the larger sculptures, visible from a considerable distance. A sculpture should be placed at each major activity area, i.e., the Yesterday's Village/ Track 29 area near First Avenue; at a transit transfer point; at 5th Avenue; at Summitview Avenue; and other places of interest selected by area merchants and property owners. The sculpture should relate in design to the East Yakima Avenue gateway sculptures, incorporate bright colors, and provide a function such as information and/or shelter. 30 ird st promenade PLACE 8: Third Street Promenade, Commons Capitol Square. RECOMMENDATION: ENCOURAGE NEW DEVELOP- MENT IN VICINITY OF 3RD STREET E YAKIMA AVENUE. Of all the potential projects in downtown, this area has the greatest potential impact since the Yakima Mall was constructed in the late 1960's. The development of the Promenade and Commons requires City and private sector cooperation and participation. The Third Street Promenade, Commons and Capitol Square consists of a three-part project: 1) construction of a pedestrian promenade along the west side of Third Street between Chestnut Street and Yakima Avenue focusing on the Yakima Hotel site; and along the south side of Yakima Avenue between Second and Third Streets; 2) development of an interior enclosed commons on the Mercy Block between skyway to yakima hotel site exterior enclosed along yakima ave Second and Third Streets as a part of a new retail -office facility; and 3) establishing the Capitol Square as an open space directly across Third Street from the Capitol Theatre. Together these elements will combine with a new skyway system to put in place an important segment to the eastside retail complex. 1. The Third Street Promenade I he "Promenade'' is a linear pedestrian walkway along Third Street comprised of an interior enclosed pedestrian shopping promenade within the redeveloped (rehabilitated or newly constructed) Yakima Hotel site, extending from Yakima Avenue south to the alley; and from Third Street west to the property line along Third Street along Yakima Avenue. l r om -(D MAO - of trees • 31 enclose mixing "place" Z. The Third Street Commons The Commons is an enclosed two—story open space at the corner of Third Street and Yakima Avenue. It has the following components and functions. ° South and east exposure to the exterior adjacent rights-of-way; Escalator connections from street level to the second floor skyway level; Exhibit festival and events space within the commons; Interior landscaping as agricultural forms such as a sma|l grove of dwart fruit trees, etc.; ° A water element (water falls, fountain, ----^-~~~~~~~ 3. Capitol Square Capitol Square is a segment of the Third Street Promenade which is directly across the street from the Capitol Theatre. The design concept for this area includes an exterior semi -enclosed landscaped plaza between the alley and Chestnut Street. The setback required for the square should be established as a special features setback whether or not any building structures are constructed within the City of Yakima surface parking lot (or future parking structures, see diagram) . The design standard for this area should provide a 20 -foot setback from the westerly South Third Street right-of-way. t. 11.1111111-11( 4,40 ell 1111 ,1111 • r "" formal garden with shelter> and Iauadscaping Yakima Hotel site, oriented south to plaza as well as to Yakima Avenue ountain— view north along third street 33 CAPITOL THEATER PLAZA PLACE 9: Front Street, Depot Square and Rail- road Commons. RECOMMENDATION: ENCOURAGE CONTINUED REDEV- ELOPMENT IN FRONT STREET/DEPOT SQUARE AREA. The North Front Street Historic District represents the 'Pioneer Square' of Yakima, an historic area with architecturally significant buildings in an unique compact urban setting. The district is highlighted by the Burlington Northern Railroad Depot and Railway Express buildings on the west side of Front Street and by the Lund Building and Opera House/Grants Brewery on the east side of the street. The area has in recent years been the target of a private sector owner/tenant revitalization effort focused on specialty shop retail, dining and entertainment uses. Desi n Issues: Design issues focus on three areas: protecting the historic features and character of the district as one cohesive area composed of special uses and structures; 2) using the North Front Street right-of-way and the 'yard' between the REA BUilding and the Depot as focal points for the entire district; and 3) effectively replacing substandard and/or obsolete buildings with new structures and supporting services which preserve and strengthen the underlying historic statement or theme of the district. Protecting the district as a cohesive unit may require City ordinance enactment to legally set the area aside as a special district. In addition, the property owners and tenants will need to make capital investments into buildings and sites to rehabilitate and restore the key historic and/or architecturally significant buildings which represent the district. Zoning code amendments should be considered with design requirements as opposed to design guidelines as a means of protecting both design elements and the capital investments of buildings. The expedient preparation and approval of district ordinances and requirements will serve to reduce conflicts between private development objectives within the district in the future. The depot 'yard' is owned by Burlington Northern. Front Street is public right-of-way. These two sites along with the parking areas west of Front Street and north of the depot constitute the key open space within the historic district and are well situated to benefit the entire district in addition to adjacent uses. 34 Design issues include the possibility of ded ig these open areas to pedestrian movement. id activities„ streetscape elements, surface treatment and decorations. Since there presently exists service alleys within the North Front Street block, service vehicles pose no conflict within the street right-of-way to pedestrian uses. The Front Street right-of-way carries vehicular traffic in a north/sound direction but also has additional potential for an expanded pedestrian street, at least seasonally . Deteriorated and obsolete buildings and the social and security problems associated with their vacant or semi -vacant occupations pose a significant obstacle to complete redevelopment of the historic district. The two buildings occupying the south side of "A" Street between Front Street and First Street require immediate and decisive action regarding their future disposition. In addition, several buildings along First Street are presently occupied with taverns which are the focus for street -related problems (alcoholism, vandaisim, loitering, and social disruptions). In all of these buildings, cost estimates need to be developed to ascertain both the economic and physical life expectancy of each structure. Rehabilitation costs should be compared to costs of acquisition, demolition and removal in order to ensure a cohesive block -wide revitalization effort for the entire historic district. Design Recommendations: Based on the e underlying issues identified and discussed above, re following recommendations are presented for review and adoption: HISTORIC DISTRICT COHESIVENESS RECOMMENDATION: ESTABLISH NORTH FRONT STREET HISTORIC DISTRICT AS OVERLAY DISTRICT IN ZONING ORDINANCE. The North Front Street Historic District should be officially designated as a part of the City of Yakima Zoning Ordinance, by means of an overlay zone or equivalent planning technique, to define the district as follows: (west boundary) Burlington Northern railroad tracks west of the depot building site PaN f ry 1 **lit 4641 ) • avuk lel4e kFthm Eil 4kV�n1frivj 1, NORTH FRONT STREET 1 1-IISTORIC DISTRICT between Yakima Avenue and "B" Street; (north boundary) "B" Street between Front Street and First Street; (east boundary) Front Street between "B" and "A" Streets, and First Street between "A" Street and East Yakima Avenue; and (south boundary) East Yakima Avenue between BN railroad tracks west of the REA Building and First Street, Design Standards should be prepared and adopted as a part of the historic district ordinance including but not limited to standards for new and rehabilitated building construction, site improvementstandards, and streetscape design standards. 35 Improvements which could assist in visually unifying the entire district include: 1) a consistent streetscape design incorporating similar street trees, tree lights, pavement textures, interpretive signage and building signage; 2) variety and creativity in the operation and programming of district activities both public and private; and, selected street sculptures located within the district which are different and distinct from other downtown districts. DEPOT SQUARE AND RAILROAD COMMONS RECOMMENDATION: MAINTAIN DEPOT 'YARD' AREA AS PUBLIC OPEN SPACE. The 'yard' between the Depot and REA buildings is recommended to be set aside as designated open space primarily for pedestrian use, controlled either by a design covenant on the property binding any future developer of the BN property, or by a long term lease of the property by the City of Yakima, with improvements to be made by the developer as a condition of development. The use of this Depot Square is proposed to be an outdoor activity area including street fairs, exhibits, the North Front Street Arts and Craft Fair, Grants Brewery Annual Hop Festival and Sausage Eating Contest, and a Bite of Yakima sponsored by the Greystone Restaurant. The space should be programmed by district representatives for community, commercial, and recreational/entertainment activities. NORTH FRONT STREET RECOMMENDATION: EXPAND AND ENHANCE PEDESTRIAN AREA ON NORTH FRONT STREET The North Front Street right-of-way can act as a barrier or a connector to the Depot site and the main North Front Street block on the east side of the street. This plan proposes that the pedestrian area within the right-of-way be enlarged between East Yakima Avenue and "A" Street Avenue and possibly as far as "B" Street. The specific design of this pedestrian area, whether it is a semi -mall or full mall, will require additional site and traffic feasibility studies and design. Regardless of what option is eventually decided upon, the appearance of the sidewalks and street should be pedestrian in character, visually connecting the west and eastsides of the street; the comfort and safety of pedestrian crossings should be made obvious and secure; and, the extension of the Depot Square activity area in FFailroad Commons rtfie street) should be accomplishJfc through design and tvaf c revisions. 36 RECOMMENDATION: DEVELOP AREA NORTH OF DEPOT AS PUBLIC PARKING Finally, the historic railroad grounds extending ,h from the Depot building to "B" Street should be set aside for parking in a landscaped setting reminiscent of the historic tree shaded boulevard of the early 1900's. A double row of shade trees is proposed to be planted along the western right-of-way between "A" Street and "B" Street, with one row planted within the North Front Street sidewalks area and one row planted on BN property between the paved and striped parking lot and the sidewalk. NEW CONSTRUCTION AND SELECTED REHABILITA- TION/RESTORATION Redevelopment of the northern and eastern sectors of the area is necessary for complete revitalization, requiring a reorientation of those portions of the area regarding access and focus. The plan proposes one story retail and entertainment/dining uses along First Street connected by an interior block pedestrian arcade to Front. Street and the Depot area. Parking for these uses would be located within the block interior with access via the existing alley and from First Street. Because of the busy and noisy characteristics of First Street in this location, an interior orientation within the block using a courtyard and arcade concept as a part of the architectural design is considered critical to the success of this area. The northern portion of the block facing the County detention facility can be utilized as short term parking and explored for long term housing, otly located on the edge of the retail core area. PLACE 10. The Warehouse Corridor. RECOMMENDATION: ENCOURAGE CONTINUED RE- DEVELOPMENT OF WAREHOUSE CORRIDOR. This area is presentlly under redevelopment as a Farmers' Market -Speciality Shop area and should continue to expand and solidify. Regardless of the types of retail uses which occupy this area, the warehouse architecture should be retained to give identify to this special district. The building square footage and construction would be very difficult and costly to replace. Unoccupied buildings may be mothballed for future use. A long term development for this area would include a substantial redevelopment of the existing warehouse buildings to the north of the district between 2nd Ave. and the Burlington Northern right of way and bounded by "B" Street on the north and Yakima Ave. on the south. )Until a definite market can be determined for the structures, based on their existing available square footage and the quality of building construction, they should be kept in a holding pattern until feasible uses emerge. These buildings s d be included within the westside historic a. pct, so that they can be treated as a part of the historic district preservation scheme even though their architectural features may not warrant such action. PLACE 11: The 5th Ave. Corridor. RECOMMENDATION: CONSIDER URBAN DESIGN ALTERNATIVES TO ENHANCE RETAIL AND COM- MERCIAL VIABILITY AND ATTRACTIVENESS OF 5TH AVENUE CORRIDOR. This district is defined as the area from Lincoln Ave. on the north to Yakima Ave. on the south including the Schultz Furniture complex and other retail facilities along Yakima; and, from 7th Ave. on the west to 3rd Ave. on the east. Within this complex, the Yakima School District office facilities are located between "B" and "A" Streets and 5th and 4th Avenues. The north end of the 5th Avenue Corridor is highlighted by the Albertson and Safeway food store facilities. The Albertson/Safeway retail/commercial district is a magnet for the westside area, attracting people going to and from the eastside part of the Central Business District as a stopover for food and other convenience goods. 5th Avenue serves as a north/south connection between Yakima Ave. and Lincoln to the north. In addition, the location of the S tz furniture store complex, H & H Furniture S. and other smaller retail facilities located between 6th Ave. and 3rd Ave. contribute to activity in this general area. The School District properties should maintain and expand, where possible, landscaping both within the street right of way and on their private landscaped area. Fortunately, the bulk of the parking for the school district complex is within the interior of the block. It is recommended that a stronger connection of the Yakima Ave. retail area to the "B" Street food store complex be developed through street design, lighting banners, and/or landscaping along 5th Avenue. A major street tree landscape program should be undertaken for 5th Ave. between Yakima Ave. and Lincoln Ave. to visually connect Yakima Avenue to the food stores. In addition, the treescape surrounding the Albertson's lot should be completed similar to the streetscape which is presently in place in the Safeway block to the east. The amount of 37 parking and asphalted areas in the Albertson/Safeway blocks requires additional landscaping to soften the visual harshness of the parking area, screening it with street trees. Additional landscaping should be considered along "A" Street between 4th Ave. and 7th Ave. in order to connect this retail district to the Summitview/Pierce Ave. area. .7401W90" wevii west yakirna Y0.-Pr-v;t'\C/4-t PLACE 12. 7th Avenue Commons. RECOMMENDATION: REDESIGN SUMMITVIEW CON- NECTION TO "B" STREET TO CREATE WESTSIDE "EVENT -PLACE". The Summitview/7th Avenue District presents an intriguing opportunity for the City of Yakima to create an open space focal point or "events -place" on the Westside. The blocks bounded by Pierce Street, 7th Ave., Summitview and Lincoln Ave. to the north have been formed by the intersection of two different street patterns. The traffic flow through this area is confusing and complicated. The Pierce St./7th Ave. roadways essentially disect an existing residential community with a small portion of that community being located on the eastside of 7th Ave. within or at the edge of the Albertson's Safeway retail complex. The emerging speciality shop retail complex along Sumrnitview, including the 901 Summitview complex and Scarborough Fair is creating development pressure and traffic problems along Sumrnitview and at the intersection of Summitivew/Pierce and Summitview/7th Ave. The preservation issues for the residential neighborhood north of Sumrnitview and to the west of Pierce Street are directly related to what happens within the Pierce/7th Ave. corridor. The recommendation, although requiring a realignrnent of roadways and the purchase of commercial property, is the following: O Vacate "A" Street between Pierce Avenue and 7th Avenue. Transform 7th Avenue between Yakima Ave. and "A" Street into an off-street parking facility for the retail/commercial complexes directly to the east; O Vacate Browne Ave. between Pierce Avenue and 7th Avenue; O With the residual land resulting from the street realignrnent described above, a significant landscaped open space or neighborhood and business community events -place can be established within the area north of Sumrnitview Ave. and south of Folsom Ave. using the vacated street right of way portions from Browne Ave. and "A" Street. 38 yakima ave SEVENTH AVENUE COMMONS Phase I This portion of downtown has no defined neighborood or business center park or open space facility. The Summitview/"A" St./7th St./Pierce St. intersection is one of the few opportunities for the City to establish a major usable open space or 8491toe th avenue co j o 4, # urg,kal, 4111!: unAmufttGtv1�TX '9 41x; r;s .1. r" 1 0 Q a 09 Y Avg • d -Fivta yakima sour= kasprisin design group 39 commons area in the Westside Central Business District area. The building that is located to the north of Browne Avenue and bounded on the east by 7th Ave. and on the west by Pierce St. on that triangular portion of land could be purchased by the City and rehabilitated into a community center, meeting room facility for the neighborhood and business community; or, the building could be raised and that triangular portion of land should be converted completely as a park space or public open space. Further modifications to the Summitview Ave./West Yakima Ave. intersection are also possible and should be considered. PLACE 13. Summitview Center. RECOMMENDATION: FURTHER ENCOURAGE THIS DEVELOPMENT WHICH SERVES AS THE WESTSIDE ENTRYWAY TO DOWNTOWN. The emerging retail area along Summitview Ave., west of Summitview's intersection with 7th Ave., has created a small intense retail district which is located on both the north and south sides of Summitview and is characterized by two small specialty shopping facilities, Scarborough Fair and 901 Summitview. These developments are targeted at the downtown employee/consumer going to and from residential to employment center on the eastside. PLACE 14: St. Elizabeth Place and Davis High School. RECOMMENDATIONS: 1) ENCOURAGE CONTIN- UATION OF CAMPUS -LIKE DEVELOPMENT IN THE COMMERCIALLY ZONED AREA; 2) PROTECT RES- IDENTIAL INTEGRITY OF SURROUNDING NEIGH- BORHOODS; 3) ENCOURAGE DEVELOPMENT OF CITY APPROVED MASTER PLANS FOR BOTH THE SCHOOL AND HOSPITAL. The Westside is more dispersed in its activity than the eastside. Wholesaling historic industrial and warehousing activities and general commercial rnerchandizing have, for the most part, been spread throughout an area ranging from Spruce Street on the south, 10th Avenue on the west and Lincoln Ave. on the north. The area is bounded on three sides by neighborhoods which are in various states of economy and physical transition. In addition, the east/west road system carrying traffic into and out of the Central Business District has further defined the land use patterns on the westside; in some instances, the major arterials act as edges to various subareas or districts. Specific land use activities creating special districts within the Westside area include: the St. Elizabeth Medical Center located between 10th Avenue and 8th Avenue and Chestnut and Walnut Avenues; the Davis High School complex located in the vicinity of 7th and 5th Avenues south of Walnut Avenue; Summitivew-•7th Avenue district; the W. Yakima Avenue historic retail district; and, the 5th Ave. retail area. The two institutional facilities (St. Elizabeth's Davis High School) have impacted their districts ...,n traffic and parking problems, and expansion needs for future facilities. The institutional land use pattern stretches two blocks south of Spruce Street and to Yakima on the north and from 5th Ave. on the east to 12th Ave. on the west. —possible community center 1'0°41, .440151AirtZli 4190 '44/414!4,s • �lair�".- t commons "a' street cul de sac turnaround . -- commons open space for the neighborhood -- seventh ave as parking lot tot lot SEVENTH AVENUE CO' MONS view north along seventh avenue 40 improved landscaping SEVENTH AVENUE COMMONS Sr REETSCAPE IMPROVEMENTS CITY OF YAKIMA t ' A \ 42 -s< streetscape improvements ;TREETSCAPE IMPROVEMENTS ree • >e improvements are defined as physical rn-m��e objects, textures, patterns and landscap- gs elements which occupy the public rights-of-way. ley include utilitarian elements such as utility poles, affic, signals and signs, directional and information gns, fire hydrants, mailboxes, electrical equipment, Id manhole covers and other grates and grills. The are familiar streetscape elements include street irniture such as benches, fountains, kiosks (bulletin )ards) bollards (to separate pedestrians from traf- :), shelters and artwork. Finally, "streetscape" in- udes landscape treatments such as trees and shru s, seasonal and perennial flowers, planters, tree rates and tree guards. his Chapter will outline areas where streetscape iprovements can be made to Yakirna's downtown in ays which enhance the design of the special ,ents-places; and, which contribute to the overall lentification and beautification of downtown. Above I, the streetscape improvements are ancillary or Jpportive to other more in-depth changes including Ind use, "place" design and building configurations. treetscape improvements are often misinterpreted as rban design solutions due partly to the relative ease f location (the public right-of-way is available); to le relative low cost compared to other urban design nprovements; and, to the high visual impact they rovide. tree—ape improvements need not be restricted to he 'ic right-of-way. In fact, this report re- ornr . .s increased use of landscaping within private evelopments. A key element to the success of any 3ndscaping program is that it be designed to minimize andalism and security problems and include a main- enance program. .andscaping with street trees has occured along both ides of Yakima Avenue with mixed feelings on the ,art of residents and merchants. Most consumers upport the greenery while many merchants take issue rith the placement of some trees and the blockage of igns by the trees. ECOMMENDATION: ADOPT STREET TREE PLANT - NG CRITERIA. rased on discussions with forks Department, area long Yakima Avenue, the re made: the City of Yakima Public nurseries and merchants following recommendations 43 ° All trees considered for plantings should meet these criteria: 1. They should have root structure which go deep enough to prevent sidewalk uplift. Due to the rocky soil conditions below the topsoil, tree holes should be dug deeper where rocky conditions exist. 2. Tree root diverters should be required. Such diverters can help force root growth downward, minimizing opportunity for damage to sidewalks. 3. All trees planted should be resistant to salt. Salt is used to reduce winter snow levels on the streets and much of it ends up in adjacent soils. 4. Trees should be selected which minimize the blockage of signs attached to business establishments. In addition, trees should be placed so as to allow full sight -lines at intersections for on -coming traffic. Based on interviews, public meetings and other citizen input, a number of special street- scape improvement issues were addressed. They are described in the following sec- tions. YAKIMA AVENUE LANDSCAPING RECOMMENDATION: ADOPT YAKIMA AVENUE DE- SIGN OBJECTIVES AND STANDARDS. Yakima Avenue, Third Street, Naches Boulevard, Fifth Avenue, and Summitview Avenue can be "linked" or connected to one another visually by landscaping each with Honey Locust trees. All other streets should have either a combination of locust and orna- mentals or all ornamentals. Recommended plantings east of Naches Avenue are detailed in the "East Yakima Avenue Parkway" discussion. West Yakima Avenue requires greenery through street trees; sign creativity through imagination not control; and structure through pattern and repetition of unifying elements. The next two sketches street trees and street structure and pattern. provide "The Ave" with advertising space, shelter illustrate the use of both sculpture to bring about The street sculpture can identity, colorful interest, , and vendor space. the west "ave" needs to 'read' as a similar physical motif metal sculpture with 3-d colorful fabric coverings, used as shelter, signage and identity repetition of scultpures a ons= west yakima ave and 5th ave ould establish a streetscape motif --.� does not detract from original buildings 44 restored facade shop windows for the streetstreet trees sculpture as identification district cleaned - brick facades steam (or repainted with artistic . .. ng) colored brightly _ _ _ she ���� as ter, . . decoration_ . and/or identity the '����de"ave". East Yakima Avenue between First Street and Naches Boulevard is one connecting "p|acev, forming the historic shopping spine of the eastside retail core, and connecting West Yakima to intense retail/depart- ment store area. Recommended shade trees for Yak- ima Avenue are Honey Locust. Where existing trees are Honey Locust, they should be permitted to grow in height so that the underside of the tree mass can be trimmed to avoid sign b|ockage. Given time, the Locust trees will achieve considerable height so that the first building stories can have open sight |inos. Only male Honey Locust trees shouid be planted to reduce maintenance costs from the sheddings of berries from female trees. THE 'GROVE' CONCEPT FOR DOWNTOWN LANDSCAPING RECOMMENDATION: DESIGN AND PLANT "GROVES" THROUGHOUT DOWNTOWN To reflect and implement a DESIGN STATEMENT for downtown which incorporates a regional image, this plan recommends the design and placement of groves of trees throughout the downtown. These groves are intentionally reflective of orchards, orderly groupings of trees to create a symmetrical massing. These groupings are at least two rows wide, preferably more. Their importance is in their definition of "place" rather than merely streetscape. They are places for people to congregate, rest, and/or to participate in events sponsored by the City, Down- town organizations, merchants, etc. The repetition of small and large scale 'groves' will establish a pattern and a symbol for the pedestrian areas. It is more than decoration and should be encouraged as a part of major new private develop- ment projects. As is illustrated throughout this plan, the 'grove' concept can occur outside in public and private open space areas as well as in interior en- closed private spaces, i.e. , the Mall's Yakima entry court when that space is enclosed. Finally, not all groves need to be made available to the general public but can be consumer/customer oriented. Species of trees suitable for these groves should be limited to non -fruit or seed bearing ornamental fruit trees. Each 'grove' can consist of a different variety to provide changing colors in the spring and fall. Examples of trees suitable for an urban environment (including snow removal) include: O Thundercloud Plum O Flowering Crabapple O Weeping Cherry O Sand Prune O Ornamental Peach O Other ornamental fruit trees 46 Each grove of trees should be accompanied with an interpretive sign describing the type of tre �d possibly the type of fruit, if applicable, thL .ne (non -fruit bearing) urban grove represented for the valley industries. Finally, ideas such as the above often require addi- tional or new maintenance challenges. While the plan strictly discourages fruit bearing trees, etc. there may be the need for spring or fall replantings for hops or other materials. To deal with this possible issue, to expand the involvement of the community in the project, and to reduce the potential for vanda- lism, the following options are recommended for con- sideration: Institute an "adopt -a -grove" program where each grove, monument and/or sculpture is assigned to a specific group of volunteers from the resident and business community, responsible for regular maintenance under the direction of the Public Works Department/Parks Division or Department of Community and Economic Development. On the adjoining map, recornrnended locations for the urban grove concept are located along with a code designating public or private. SECOND STREET LANDSCP "N4 RECOMMENDATION: REDESIGN 2ND STREET L,.wD- SCAPI NG Landscape improvements on Second Street between "A" Street and Chestnut Avenue should be modified to eliminate full shape trees and which are too near the intersection areas. Evergreens, which will reach heights of twenty feet or more, are acceptable if the Cower limbs can be removed. Mugho Pines and ar- borvitae which are growing into dense screes, block- ing views of the sidewalk should be either removed or cut back and regularly maintained. EE LIGHTS RECOMMENDATION: CONSIDER IMPLEMENTATION OF STREET TREE LIGHT PROGRAM. Tree lights have been suggested by area merchants as one way to add interest and identity to downtown landscaping. There are three options recommended for action: Option 1: Decorate all trees throughout the down- town area with small white lights. Option 2: Decorate only those trees along Yakima Avenue from 5th Avenue to Naches Boulevard and along Fifth Avenue, Second Street, and Third Street. Option 3: Decorate each special district downtown with a different color light. For example, the de- partment store area from First Street to Naches Boulevard and along Third Street could be decorated in white lights. The Front Street District from First Street to Second Avenue and from Chestnut Street to "B" Street could be decorated with blue or red. And, Fifth Avenue and Summitview Avenue could be decorated in green. There are many variations of this theme and local merchants and property owners c% leterrnine colors and exact boundaries. The tree li should be restricted to night time activity areas sucn as entertainment and shopping. Additional maintenance costs will be necessitated by this approach but if those costs are shared by the participating districts, the benefits should outweigh the costs. 47 MONUMENTS RECOMMENDATION: ESTABLISH STREETSCAPE MONUMENT PROGRAM Downtown Yakima is deficient in historic and point of interest markers and monuments. More common to- ward the early part of this century, the monument has been neglected in recent years as a part of urban streetscape. A newer concept for urban monuments in downtown Yakima includes interpretive monuments providing information on historic or area life styles and/or industries in a manner which incorporates a three dimensional sculpture or other design so that the interactive element has enough mass to be seen, has visual stimulus to attract, and has a representative topic reflecting a part of the community life. Examples abound for this concept ranging from more traditional monuments dedicated to influential citizens to sculpted 'groves' using hop frameworks to define seating areas or events places. Local artists could participate in the design of these interpretative monuments with a set of given criteria: it must have sufficient size to have visual and scale impact; it must incorporate materials and/or plant materials from the valley; it must be interpretive, providing infor- mation to residents and visitors about Yakima (as the center) and the valley (as the resource). 0 The School District can assume °ownership' of a number of groves or monuments and assign each to a class or course so that the students and faculty can participate as an educational -public service program. Plaques can be located at the sites to honor the "Class of '92 or Mr. Fogerty's Civic Class. 0 Valley agricultural industries can contribute materials, time and expertise for critical main- tenance (bi-annual) cooperative with the City or preferrably the School District. This involve - merit by the valley growers (or representatives) could have promotional, marketing and social benefits for the downtown community. STREET SCULPTURE RECOMMENDATION: STRENGTHEN YAKIMA AVENUE IDENTITY THROUGH USE OF STREET SCULPTURE. One of the more challenging issues for Yakima Avenue has been centered on how to improve the pedestrian's identification with the sidewalk area in a way which is colorful, adds an element of scale, is contrasting with the landscape element and is versatile in its use. vendor areas sculpture One potential design tool to meet the above criteria is street sculpture. Street sculpture would be designed as a repetitive sculpted element which would reoccur in major blocks between Summitview and the conven- tion center area. If a consistent design is main- tained, the sculpture could provide a new focus for Yakima Avenue. Suggestions for the use of street sculpture are as follows: 0 at the entry to East Yakima Avenue in the vicinity of 7th to 9th Streets; as mid -block sculpture in the retail core, ex- hibiting size, mass and interest in its shape and form; 0 as places for banners, artwork, exhibits; 0 as possible, temporary shelters from th . fat her. The following sketches illustrate a structural frame type sculpture which could be versatile in its use Obviously, other alternatives exist and local ar groups should assist in determining final design=_ The important criteria is that the sculpture should b considered an urban design tool in that it has function for the streetscape in addition to its artisti form. identification towers 48 sculpture W TER AS A DESIGN ELEMENT RECOMMENDATION: ENCOURAGE USE OF STREAMS, FOUNTAINS, ETC. IN DOWNTOWN LANDSCAPING. Water is a precious commodity for the Yakima Valley and is the life blood of local agriculture. Utilizing water in fountains, cascades and waterfalls as part of public and private open space design is strongly encouraged. Ample opportunity exists for water cascades as a part of new public and private developments being con- sidered for construction by 1990. The City should encourage more creative use of water in interior private open space where maintenance and operation are more efficient. FAIR ROUTE CONNECTOR TO DOWNTOWN RECOMMENDATION: UTILIZE STREETSCAPE DESIGN FEATURES TO DELINEATE ROUTE BETWEEN FAIR- GROUNDS AND DOWNTOWN. Ar )roved connection between downtown and the Yak....a Fairgrounds is presently being investigated by the City. Due to the fact that there is no straight- line connection, and that a number of right angle turns probably will be necessary along the route, identification of the route for the driver is most important. Signage obviously will provide some identification. In addition, the necessary identification of the route as a connection between two significant destinations, warranting more drama, formality and demarcation. Ways in which to provide these are as follows: o establish a street tree program which incor- porates large deciduous trees along the route; where possible, establish a double row of trees along each side of the route; o color code all fair destination and downtown destination signs, different from the normal traffic signage; 49 'A' o prepare special fairground/downtown banners which would be displayed on light poles along the route. The banners could be changed according to the season; o where possible, a boulevard median planting strip would add substantial draw and a sense of approach, particularly if the fairgrounds are ex- panded to include an agricultrual trade center. trees —agri--cultural festival grounds (winery/fruit tastin *—exhibits) festiv isp 11 tui: , fait\ \/' fid, •'^Y �+^ •1tz, 7 61), C-024 TRANSIT TRANSFER FACILITY RECOMMENDATION: IMPLEMENT LOCATION ANAL- YSIS STUDY AND DEVELOP NEW TRANSIT TRANS- FER FACILITY. A project whiich should be researched further by both the Transit Division and Community Development is construction of a Transit Transfer Facility. While a separate study is needed to choose the best site, one potential site near West Yakima Avenue between Yakima and Chestnut and First and Second Av is was considered by this study to exemplify the c tunity. . This facility removes standing buses from East Yakima Avenue to a site which should be accessible. The transfer facility could be part of a new or existing retail and office complex provided sufficient space is available for loading areas, a bus turnaround and user parking. ops/whole, e /2 park and ride lot employee shuttle arking lot indu condominiu lir IV — transit transfer facility 50 SECURITY D SHOPPER COMFORT CITY OF YAKIMA RECOMMENDATION: MAINTAIN OR ESTABLISH THE PERSPECTIVE THAT DOWNTOWN IS A SAFE PLACE TO BE. Street crime cannot be alleviated through urban design. Well conceived design can, however, reduce the opportunity for crime and improve the sense of security for users of the downtown. Recommendations The Downtown urban design plan recommends the following design approaches to the crime issue: 1. Areas of high crime statistics should be des- ignated 'redevelopment areas'; each area would be targeted for code and tax enforcement against property and building owners; would be scrut- inized with additional patrols; and, would be given a priority status in public redevelopment priorities in conjunction with a master plan for the area. 2. Areas of passive congregation which are not related to the specific site should be restru- ctured, relocated or dispersed. This includes the Transit transfer points on East Yakima Avenue between the Chinook Tower and the Yakima Mall. If people, particularly young people, are required to gather and wait without diversion or relief, their energies can be re- leased in vandalism, annoyances such as noise and litter, and more serious street crime against people and property. Locations for the major Transit transfer areas should be relocated to areas which are designed for passive congregation and are not adjacent to high intensity consumer areas. This does not recommend elimination of bus stops but does recommend relocating the high intensity transfer function. 3. Outdoor shopping streets and the connections to consumer -employee parking areas should be well lit, including alley ways which are recognized paths for pedestrians. 4. Outdoor public spaces should be designed in a manner which permits clear viewing into the space. Shrubs and trees which block the view from people seated in passing vehicles should be prohibited. "Where possible and appropriate, outdoor areas should be designed and programmed to att as many people as possible for the space to ,`ely accommodate in order to improve safety and the feeling of security for users and passersby." 6. Where feasible, public and private open spaces should be enclosed to be useful during the summer and winter months and to permit off -time security control. The public requires a 'sense of security'. There are situations in downtown Yakima where crime is not a statistical problem but it is a perceived problem. In order to alleviate these perceptions, the following suggestions are offered for review and implementation where appropriate: 1. Use brightly painted surfaces, especially in darker areas. (For example, use white or light with highlight colors). They are perceived as safer-, more inviting than darker, earth tones. This could apply to alleyways, parking garages, and building facades. Use lighting which is bright and extensive in coverage. 3. Increase lighting in shops, buildings, parking garages, parking lots and in window displays. Provide additional auxiliary patrol officer `ter hours, especially in and around parking 1 ,nd other areas identified as "potential risk" ar eas. 5. Enhance litter control program to ensure fre- quent and effective litter removal. The City of Yakima should consider land leasing a portion of the Mercy Block at the corner of 3rd Street and Yakima Avenue and developing the interior space as a public open space albeit enclosed. The same option should be available for the Yakima Hotel site. This would permit a public enclosed network to exist from the existing mall to the Mercy Block to the Yakima Hotel sil:e, and possibly south to a future public parking deck and the Capital Theatre area. F 1PLEMENTATION CITY OF YAKIMA ".4l1(JoJi®.®1 r,�l y'wVo O O J 1 SD1 r'r� jno71.21, SPECIAL DESIGN DISTRICTS In order to divide the overall project area into man- ageable units, and to establish sub -area identity and input, Special Design Districts have been defined for the downtown. The purpose of a design district is to organize similar uses, geography, design and functional aspects into one spatial unit. This organization allows owners, tenants and the City an opportunity to address pro- blems and potentials on a district level without in- volving the overall downtown plan or City-wide plan. Each district, in terms of plan implementation, can act as an "overlay district" for special zonings or min- imally as a boundary for special design guidelines or requirements. The adjoining map illustrates sixteen potential design districts for City adoption. They are: I S7 I X11 Il 'I1 11 [ j~7 r uP 1 r r' Ir!„!C11 sU i� i 1K, 1 [ 1. • h, Ji° 1 i, CJI 1 h _I u I1711!lt7 .ro Il I 3 di 13 l l n J� 11 1 j L f1 7-111 FL- C7I r_ f Lf] L.1] R1P "taLL11 k,111:11 s1R j � � , t IJ1.1j1Hleti [..1„;1''':1:1 1 i I i I rE -IiC[l � I - -s II, I I 1 I I cl�v.t,I I. +v j 1-_l 1 _1 J _ 1 ;' I l l �, L X11 L 7.11','1', 1• 1 • .1 J j 1 1 11114 f. ,i :-.t; 11[i �r' 1 - 1 u`r-i 0 11 1 r 1 i L., J� L i SDI l ISI 12 r-1,iSar-c�ISp.,N7il , S1r11it 1(1 F..-_7,1 ,� ” ii '1'1 I �i11'l• •l7��I�l�s I I'l � I_II,I l I �,. . ,--14''''? 1' ''.1'i 11lf 1 L 1 H 1 1 , J1 11 I1 1 -_ 11. I; L. - 1_1 '1 1S'' ` I I, L. , a'. 54 .!IJ, III ! it �I I ,I 111 1; LL L Legend SDI: SD2: s. SD5: SD6: SD7: SD8: SD9: SD10: SD11: SD1 2: SD1 3: SD1/4: SD1 5: SD16: Special Study District (Visitor Industry) Convention/Lodging/Entertainment Special Study District Special Study District Residential District Governmental/Institutional District Retail District Community Support District Residential District General CBD Industrial General CBD General DBD Residential District Medical Services District Educational District ..i --i -' n j' y - t , (-)' 1c 1 11 'T— Trf",,,T.7-----..---- —................ 1, -11 ' ir .1 LC, 51? 61,:j L.1, EL ....,, ,,..,.„„..,, . 1 LLIIJ.V._ Li 11 E En 7r ` .1 . 0' p 0 150 3Q0 600 scale in feet I a r P-1 1 IR erL-I, map soup= kasprisin design group rE lc -J -l; '/)) cr:), - -5, 1J p, r] -; 1.1 rTh 11 L )1 1:11° 1 0 SPECIAL DISTRICTS ELI rT Cej rtc-13, 0'.1[711S1 r11--'13:1°7it] It ott F3 orifi (71 If I [- L3 ' 1-;-'011 ir n L. .iY 11 Pj SD I. L1 1' L 1 1 r:11 1 ' 17 1 r q (.5 c )0, .. 17r —L 1,3 11. •) 1, - !I i L111 li 1 // r 1.11,1,1) . .......... —.. L I. Lj 1 SD /9 11' 0" ,7 c„,,:::-..),,zi,:i.,<°,,° 7 :,,,// i ,i., , tI r • (if 1 1 1 I • t 1 Li 3{11 ' 11 t I tri 1 t1 1 111' 1 (1 Li I 1:.,, , t; II,10() /1, ,/ ',' / 11 Ir‘ ,(,," , ,: , ,...4 / .. , / , 7 127, . f 1 / (:, / I /i ,, '' /'I' 7 // '' i t f, ,, a I , (I/ SD 1 /----,r-z., ....,. i1 r , il 1 i i....1 , , - -1 ,__f I ' if . I i II r I , i' -1). ,,,(7..,, , ca, ••••.,. •-•... L., • t- SD 2 'L, [ , 1, '; 'f -I' ,,„„ ,., 0 10.0,6i11, deLotil, MB UP UlLkI0 r iL / I L.Arttr . '1 1 'It- 11,`,-, ! !! na ]!1.1 ' '1.71 inr11 - I 1 11 .11 [1--1 (11 L ). I - 11I L_ t I 1]T IH — r1,1t1t-t) I1 j 1, , .,) r LI- i L1.721 I1LJ ; 12.] ,4_,..J1.1 17 II 1 L.!. 55 IMPLEMENTATION RECOMMENDATIONS: For years the decentralization of commercial activities, from downtowns to suburban malls and strip shopping centers, has resulted in a Toss of market share for central business districts. This erosion within the primary market area and commensurate migration of buying power has affected the Yakima CBD as it has downtowns throughout the country. Between 1981 and 1985, for example, the City of Yakima lost 3% of its market share or nearly $18 million in sales (ex- clusive of leakage). However, while many cities continue to struggle with the problems of declining downtown economies, a sense of optimism is justified. A turnaround in the decline of retail activity has to be effected in many cities, large and small, stimulated by: A growth in CBD service/office workers; An increasing appreciation for an urban lifestyle; o An increasing cost of developing alternative shopping places; Aggressive public sector leadership; and o Increased downtown organization; coor- dinated actions and leadership. Many of these factors are beginning to play a role in Yakima and if both sustained and encouraged, can help bring, about a reversal in the decline of the City's market share. DOWNTOWN FUTURES PLAN The Downtown Yakima Futures Plan forms the base for a joint development committment for both the public and private sectors. Each sector must acknowledge its role in revitalization and commit personnel, resources and dollars to its success. Neither economic benefit nor an improved quality of life can be achieved without the expen- diture of capital and a coordinated effort of per- sonnel. Each sector should have a strategy to guide its implementation efforts: the downtown community, composed of merchants, tradespeople and landowners, should utilize its real property as investment re- sources to keep downtown Yakima as THE primary center for commerce in the larger Yakima trade area; and, the City of Yakima should provide the p .al leadership and the public facilities needed to support that capital investment. This chapter will outline implementation responsi- bilities and opportunities for the City of Yakima and the downtown business community. The chapter is divided into four parts: Part A, Organization and Responsibility; Part B, Economic and Physical Design Recommendations; Part C, Regulatory Changes; and, Part D, Key Funding Programs. PART A: ORGANIZATION AND RESPONSIBILITY Organization While many changes are occurring in Downtown Yak- ima, establishing a single, focused retail management system may be the only way the Central Business District will be able to organize and compete suc- cessfully for its share of the market. This is not to say that existing organizations should he abandoned. in fact, further delineation of and representation by each special downtown district is recommended. Rather, an organization should be established to implement common goals through joint efforts. 56 A single management group, sponsored by both pro- perty owners and retailers, can create the orcran- izational and financial arrangements necessary to implement change -- change necessary for • im- proved market share position. Consequently, ore successful implementation can occur, a Yakima CBD organization should, conceivably must, he put in place. Presently the Yakima "Central Business District" includes a broad geographic area and many diverse groups, including, but not limited to: o The Westside Merchants Association; o The North Front Street Improvement Assoc- iation; ° The Yakima Mall Association; and o The Downtown Area Redevelopment Com- mittee The first formal recommendation of the implementation plan, is to establish an "umbrella" organization res- ponsible for central business district management, marketing, and design review and coordination. Orry�._ ,.ation Format Downtown organizations take a variety of forms in- cluding non-profit associations, property owner as- sociations, profit associations, and limited joint part- nerships. It is conceivable that Yakima's organization may implement two of the above forms. For example, a non-profit management and marketing organization and limited joint partnership for property develop- ment. The manaaement organization should establish a board of directors which has, at least, the following charac- teristics. o Includes representatives of each existing business organization now functioning; o Includes the interested and influential leaders in the Yakima Central Business District. o Includes representatives, in an advisory capacity, from the City of Yakima (police, fire, community development); and o Includes both property owners and business managers. Secondly, organization, in whatever form it takes, should employ a full-time professional to implement the Board's plan and policies. The concern here, of cour , becomes whether or not to place this person withi, (le overhead structure of an existing organ- ization or to establish an independent office. In large communities, with well -funded programs, the trend is toward independent offices. In smaller cities, where fund raising for multiple organizations "taps" the same businesses over and over, the down- town management staff is often placed within the Chamber of Commerce or City. Certainly, the former is more effective because of the lack of distractions; .gut the latter may be more practical. The newly Formed organization should make this decision. The figure on the facing page sets out an organ- zational framework for a proposed Yakima Downtown ambrella organization. Identified within the figure ire "satellite" organizations which should be included 3s voting and non-voting (in the case of the City and Chamber) members of the Yakima Central Business District Association (CBD) (for lack of another lame) . 57 Responsibilities Within the organizational structure that is set out, a committee structure is also identified which delineates areas of responsibility. The five committees and one subsidiary organization are each discussed below. Public Liaison Committee Cooperation between the Yakima CBD Association and the City of Yakima is crucial to the implementation process. As with almost any cooperative effort, communication is the key to cooperation. Yakima's elected officials should be kept current on projects, goals, plans, and results -- an effort which should build support with the Governing Body and avoid surprises. With representatives of the City on the Board, the excellent cooperative effort already under- way will be maintained, with the important process of communication formalized. This Committee should also be responsible for working with the City and County on the maintenance, design and development of the large quantities of public property in Downtown Yakima; including parking lots, vacant buildings (code enforcement) public buildings, and right-of-way improvements. A strong liaison should be developed for security purposes as well, including supplemental police ser- vices and additional street/pedestrian lights. The Yakima CBD Association may wish to propose a change in the hours of "high visibility police" protection, increased foot patrols at specific locations (for exam- ple, the Mall garage), and supplemental pay agree- ments using off-duty police officers as a private security force. Further, for public areas where crime is perceived to be a problem, additional street/ pedestrian lighting may be proposed with property owners hearing the additional operations and main- tenance costs. Marketing Committee This committee's task is one of the most difficult -- difficult because the individual entrepreneurial psy- chology of downtown merchants often makes store managers unwilling to consistently work together toward a common goal. The responsibilities of the Marketing Committee include: o Establishing common and frequent hours of business; O Implementing joint advertising programs that promote Downtown Yakima; o Agreeing to strong sub -areas, defined by tenant mix; and O Formulating common promotional efforts. One reason malls have competed so successfully in the past is that each of the above items is controlled through a lease agreement. The spirit of cooperation necessary to generate the energy for implementation should be provided by the individuals with a vested interest in Downtown Yakima, including owner and merchants. However, assisting the effort with joint lease and/or ownership agreements may better assure consistency in store hours, promotional efforts and tenant rnix. A further step which may be undertaken to superimpose tenant restrictions in given areas is the utilization of use limitation with "floating" or "overlay" zones. Finally, it is this committee's responsibility to for- mulate promotional and advertising programs with which to stimulate increased activity in the downtown and include the following elements: O Regular special events; O Coordinated sales and hours; O Aggressive advertising on radio, in the newspaper and with special fliers; o Parking promotions centered on the Mali Garage; and o Improved rnerchandizing and window dis- plays. Transportatiion Committee Working with the report prepared by the TRANSPO Group, the Transportation Committee will be trying to solve perceptual problems as much as real problems. Their greatest challenge will be not to become too concerned with reality and accepting that perception is often more difficult to overcome than fact. Park- ing will be the greatest challenge for this committee; with supply now exceeding demand, under -utilization of the Mall Garage, but a strong feeling of too little parking. in addition, this committee will work closely with the City on improved signage (to shopping and parking), traffic signal coordination, transit improvements, pedestrian improvements, and street improvement projects. 58 Design Committee The Design Committee's role will be one of review, coordination, and mediation. As projects are pro- posed, both public and private, it will be this com- mittee's responsibility to: 1) evaluate each design for general conformance to the plan proposed by the Kasprisin Design Group; 2) encourage the preser- vation of buildings with intrinsic architectural/his- torical value; 3) coordinate design compatibility bet- ween projects; 4) develop a reasonable sign policy that both communicates necessary advertising and complements downtown design; 5) mediate disputes (between property owners; and 6) undertake or en- courage new planning projects as present plans are implemented. Fund Raising Committee At the outset, the Fund Raising Committee will be among the busiest. Monies will have to be raised to: 'I) hire staff; 2) continue to employ and "house" that staff; and 3) begin projects and promotions. Over the years, almost every technique of fund raising has been tried, with varying degress of success, depend- ing on each business group. The following fund raising techniques are among the most common and successful for implementing downtown revitalization efforts: o Lease agreements which require a por' of the lease (on a square foot, perc< of sales, or employee basis) be dedicated to the CB[) Association. If property owners are responsive, this tool can assure a relatively steady cash flow not dependent on annual membership drives and collect- ions. o Donations and memberships are also common fund raising techniques. Belonging to the Yakima Downtown Committee may "tap" into the existing membership "pie" and reduce memberships in other organizations, but should be considered. Donations are often better as either an initial buy -in for organ- ization start-up and/or for special projects and events. o Grants from both public and private sector agencies and earned income should always be reviewed as a fund raising opportunity. Earned income can be derived from special events, festivals, parking fees, street vending operations. o Special property tax assessment credits are also available to private owners of historic buildings and the committee should make owners aware of these credits, valid only until 1991. O Finally, special assessments are a common means of raising money for downtown re- vitalization, particularly for improvement projects common to the public sector (park- ing, street, sidewalk, lighting, landscape, etc.). The last committee identified, which might be called the Downtown Yakima Partnership, Inc., is not a committee but rather a subsidiary corporation. The need to stimulate real estate development projects may be accomplished through a development corporation. Further, some businesses and individuals may be unwilling to donate large sums of money to fund downtown improvements, but, become very interested in investing in real estate development projects. PUBLIC SECTOR ROLE Almr all successful downtown redevelopment projects hav )e common variable -- an aggressive, enth- usiastic and active local government. Business people in Yakima have been fortunate to have the support of the City of Yakima as well as a willing and able professional City staff. As in Yakima, the City must often take the lead and provide the initial catalyst with which to begin the development process, but, the business community must provide the momentum. However, while the private sector must continue to provide the impetus for implementation, the City's role may increase over time, including: O Providing political support for plan imple- mentation; O Providing information, incentive and land use policy support for major private dev- elopments; O Encouraging flexibility in project develop- ment; O Support public/private partnerships; o Providing assistance in land acquisiton; O Providing prioritized public facilities in support of private developments which have a high public benefit impact; 59 O Subsidizing parking lot construction with easy terms; O Re -prioritizing public improvements to better correspond to private development proposals; O Leasing City -owned property on easy terms; O Providing tax abatement, where possible; and O Assisting the Yakima CBD Association to obtain Federal and State grants and loans. Some major downtown projects may need public sector financial assistance if it is to be feasible. While justification to the taxpayers is often difficult, the loss of sales tax revenues, property taxes and jobs resulting from too dispersed a retail community and the presence of empty, deterioriating buildings in the downtown should be sufficient justification. The dispersal of Yakima's present retail activities is at the heart of its loss in market share, costing the City a Toss of approximately $154,500 annually in sales tax revenues based upon 1985 sales. The recapture of this Toss alone can justify significant public sector investment and does not include gains in retail leak- age that could be recaptured by improved perfor- mance. An additional, somewhat more controversial, role the City can assume is that of co -developer in real estate ventures with private developers and/or the Down- town Yakima Partnership (if formed). When a project appears socially desirable from the community's stand- point but financially unfeasible, the City can join in the development process. Leveraging public monies into essentially private development deals can make them feasible, however, public entry must not slow the process or make it overly cumbersome and con- sequently dissuade the development and financial community. PART B: ECONOMIC AND PHYSICAL DESIGN IMPROVEMENTS This section summarizes the recommendations and proposals of the Yakima Downtown Futures Plan which includes the following separate reports or studies: Market Share Study by Bucher, Willis & Ratliff, a Design Plan by the Kasprisin Design Group, and a Traffic and Parking Study by the TRANSPC group. Each study contains a variety of improvement recom- mendations, based upon the level of commitment to revitalization and the amount of risk both the bus- iness community and City are willing to take in pre- serving and enhancing Yakima's Downtown. Overall recommendations for implementation are listed below under the general development goals. Detailed discussions of projects and proposal can be found in individual reports or studies. GOAL: Stabilize and strengthen individual areas of the Central Business District with com- patible and supporting activities. An objective of this goal is to establish recognizable special districts within the larger Downtown to improve the shopper's "mental map" of the area, stimulate com- parison shopping, establish individual district identify, and establish the critical market "mass" in those districts to en- courage revitalization. Economic Development Recommendations Project: Establish joint advertising and promotional programs which identify both the Central Business District, specific product, and product district. Project: Promote additional district organ- izations and membership in the Yakima CBD Association. Project: Encourage participation in either an ownership organization or common lease agreement which identifies permitted used by geographic area (a special zoning over- lay district can accomplish this same re- sult). Project : For businesses not now ed within an area designated by the .an, encourage relocation to the appropriate district with location and financial strategy assistance provided by the staff of the Yakima CBD Association. Physical Design Recommendations Project: Designate a Special District Over- lay Map identifying the type, general use pattern and boundaries of the special dis- tricts. This overlay document can be the basis for a special downtown zoning amend- ment with special development and design criteria established for each district. Project:: Promote a design consistency within each district through similar street- scape elements and decorations; and thro- ugh similar facade treatments for signs, canopies and lighting. Project: Incorporate the name of each special district into signings, advertisings and streetscape sculptures and decorations, GOAL: Encourage new development and reinvest- ment in the Central Business District. 6() An objective of this goal is to both -tice new businesses into the Central B :ss District and encourage existing busriidsses to reinvest in the area. Economic Development Recommendations Project: From the Market Share Analysis, Urban Design Plan and Traffic/Transpor- tation Plan, prepare an advertising "piece" in which the advantages and opportunities of a Downtown Yakima location are identi- fied. Project: Moving outward in concentric zones from Downtown Yakima, systematically contact successful bus inesses and encourage them to establish branch stores in Down- town Yakima„ Project: Establish an increased awareness of SBA 503/504 debentures and assist small businesses with loan packaging. Physical Design Recommendations Project: With both public and private monies, establish a commercial revolving loan fund (CRLF) which provides total or partial long-term, low-cost loans with which to make land and/or building improvements in the CBD. Project: Work with the City of Yakima to develop a facade rebate program with which small business can be provided design assistance and whole or partial rebates (if legal) for the cost of improvements to store facades in the CBD. Project: If the "Business Expansion" strategy is adopted, prepare a development agreement with the new owner of the pro- perty on the north side of Yakima Avenue, between 3rd and 2nd Streets reserving that land for a single, Targe project. In ex- change, provide the owner with develop- ment, parking and financing assistance. Project: Develop a local program, in co- operation with the County Assessor's Of- fice, that does not penalize business own- ers, through higher property taxes, for essentially non -revenue generating im- provements (such as facade improvements and landscaping) . Project: Develop an awareness of the State of Washington Special Valuation property tax reduction program for certain historic properties to be credited for the property over a period of ten years after rehabil- itation. Project: Work with CBD property owners to establish rent "ceilings" in the downtown area that gives owners a reasonable return but do not dissuade businesses from locat- ing in the CBD over newer outlying space. Project: With City assistance, establish "flexible" off-street parking standards within CBD. Such "flexible" standards would apply to new CBD developments in which off-street parking requirements could be met by combining and/or mixing off-site parking, shared parking (particularly for businesses with evening peaks such as theatres) and on-site parking. COAL: Maintain the CBD as the primary shopping area in the City of Yakima, Yakima County, and Central Washington. 61 Elimination and reversal of the erosion of the business base within the CBD is the objective of this goal and may well be the most important of all goals to be addressed by the Downtown Council. Economic Development Recommendation Project: Develop an attitude for downtown which views itself as the major resource center, and is unified in its commitment to that view. Project: Establish a strong movement within both the City of Yakima and Yakima County to discourage the establishment or signi- ficant expansion of new retail shopping centers outside of the CBD. Physical Design Recommendations Project: Depending upon the development strategy undertaken, establish a program of public and private capital improvements which contribute to the "feeling" of being in a major shopping environment. Examples of such projects are listed below: o physically alter the exterior of the Mall to read as one major facility instead of an aggregate of small shops and build- ings; o as a minimum, refocus and redesign the west Mall entrance to a 3rd and Yakima orientation; o in the area round the Mall, establish a two-tier pedestrian circulation system with escalators and skywalks; o require all major new developments to provide street level urban design amenities for the consumer public; o encourage all major new developments to provide some component of 'special events' places in the form of land- scaping groves or pedestrian 'mixing' places; o focus public sector design improve- ments on making the streetscape more comfortable and convenient for the consumer with shelters, landscaping, improved signage, sculpture and a district -by -district street level orien- tation or identify; o investigate the economic feasibility of two new additional parking garages, one south of Yakima Avenue between 2nd and 3rd Streets; and the other on 2nd between Yakima Avenue and"A" Street; o use historic Yakima buildings, as the foundations for architectural style and character for new development -- not imitating but reflective in a contem- porary fashion the architectural ord- ers, materials, and scale represented in these structures; use historic forms; o maintain the "incubator' function of the west side while improving its ped- estrian attractiveness through street- scape design; o design major gateways for downtown at key locations: on E. Yakima Avenue and 9th Street; at Lincoln Street on E. 1st Street; and, at the Sumrnitview/W. Yakima Avenue intersection area; o provide a 'special events' and open space areas in the Summitview Plaza/ 7th Avenue vicinity to serve resid- ential and business areas; o continue the street tree plantings program with an effective maintenance program; Project: Assist businesses, where appro- priate, to preserve the architectural and historical integrity of their buildings as part of expansion or improvement plans. Project: Improve the real and perceived traffic congestion image of downtown by the following ways: o Establish the interchange area of Yakirna Avenue and 1-82 as the high- way entrance to the CBD; O Synchronize signals on Yakima Avenue; O Construct the one-way pairing of 8th and 9th Streets north of Yakima Ave- nue; o Improve directional signage, partic- ularly to parking, in the CBD; O Remove pedestrian mid -block cros s on Yakima Avenue; O Develop satellite parking for CBD employees, particularly public sector employees, with shuttle buses to and frorn lots and around the CBD for mid-day excursions; O Try to provide alternative access to Boise -Cascade; O Maintain present street -level parking and expand as possible and where most needed; O Establish a transit transfer station on the near west side south of Yakima Avenue, utilizing vacant and under- utilized lands; remove the transfer function for buses at the Yakima Avenue entrance to the Mall, although the Mall bus stops will remain; GOAL: Establish the CBD as the cultural and entertainment district of Yakima County. An objective of this goal is to take ad- vantage of a relatively untapped oppor- tunity in Yakima County -- the expansion of entertainment and cultural activities. 6L Economic Development Recommendations Project: Encourage the investment capital for the development of a cu interpretive center in the downtown. Physical Design Recommendations Project: Tie together the Convention Center and surrounding hotel properties with the vacant land east of the Holiday Inn as a focal point for high visibility tourism activities. Project: Emphasize the expansion of con- vention activities in Yakima with "packaged" CBD services (restaurant, shopping, enter- tainment) provided to convention attendees and spouses. Project: Identify a location for, and con- struct, a special events plaza in the CBD. Project: Construct a tourism/culture inter- pretive center in the CBD which emphasizes the culture, history and agricultural pro- ducts of the Yakima Valley. Project: Encourage entertainment activities to locate on the west side in some of the older vacant or underutilized buildings. Project: Adopt City regulations which permit sidewalk cafes and outdoor dining. Such uses should be restricted to assure adequate sidewalk area for pedestrian traffic. Project: Establish a program of advertising and special promotions designed to empha- size the CBD as the shopping destination. GOAL: Establish the Yakima CBD as THE place to shop rather than A place to shop. Once a shopping/business area becomes recognized as an activity place, it can almost become self -reinforcing. An ob- jective of this goal is to bring recognition to the CBD as not only a place to shop but a place to go and do things. Economic Development Recommendations Project: Develop a program of regular special events in the downtown open spaces set aside for activities (e.g., brown bag lunch concerts, special sales, shows -- such as a special car display when vinti- ques are in the area, ethnic events, etc.). Project: Utilize the Mall Garage for special events, such as art shows, which can improve both CBD traffic and stimulate future garage usage. Project: Restructure CBD parking rates, particularly in the Mall to encourage greater usage. Project: Expand the parking garage valid- ation program to businesses outside the Mall and require participation through lease agreements. Project: Develop a regular series of special shopping and special events programs which are designed specifically for CBD workers. Physical Design Recommendations Project: Incorporate a 'Valley Theme' into the downtown with open space designs which incorporate groves of trees, and other agri-forms found in the valley; Project: Project downtown as a Resource Center, a place where all of the significant commercial, financial, entertainment, educ- ational and cultural activities occur; Project: Establish a program of advertising and special promotions designed to empha- size the CBD as the shopping destination. IMPLEMENTATION CAPITAL IMPROVEMENT PROGRAM There are two types of improvements listed in this Chapter for public review: first, consumer service improvements, which directly benefit the people who shop and work in downtown Yakima; the second, Economic Development improvements, which have a likelihood of an economic payback to the community. The following list contains improvements which dir- ectly benefit the people who shop and/or all em- ployees in the downtown. CONSUMER SERVICE IMPROVEMENTS: Pitcher Greenway Park $150,000 A new park would be constructed north of Pitcher Street east of 9th Street. The park would serve as a downtown gateway and as a neighborhood park 63 Gateway Sculpture $ 45,000/each Two sculpted gateways symbols would be located east of 7th Street, one on each side of Yakima Avenue. This cost estimate is based on a preliminary specification for each of the metal frameworks takes from four feet wide by - twenty-five feet high by twenty-five feet long. *Gateway Street Trees $ Approximately 30 trees are rec- ommended as an enhancement to the Gateway Design. They are a com- bination of evergreen and large scale deciduous. Street Sculpture $15,000 avc 7,500 Street sculpture can be located throughout the downtown with special emphasis or Yakima Avenue. Pieces can range in size from 12 x 12 x 3 to 25 x 25 x 4 feet. *Naches Boulevard Monuments $ 25,000/each Locate additional monuments and/or sculpture within Naches Boulevard green strip *Mercy Block Mall Skyway $500,000 One skyway is recommended at the time of development of the Mercy Block, connecting that block across Third Street to the Mall. .*Agricultural Center & Park $1M - $3M This three to ten acre development would be a park setting for an agricultural industry showcase, exhibiting produce types and industry information in an educational -recreation park. *Sunfair Park $500,000-$1M If the City assumes control of Sunfair Park on the Mercy Block, through purchase or lease, a major community focal point could be created as a park -like activity area and festive grounds. *Sunfair Plaza If the Mercy Block is developed, a City plaza could be developed as a major indoor -outdoor "mixing place"; connecting Yakima Avenue with Third Street and the Mall. In addition, the surface parking lot to the North (at 2nd & "A" Streets) could be expanded by constructing a multi-level parking garage serving parking needs of adjacent businesses, as well as a new major developer. $350,000-$500,000 *Yakima Avenue Landscaping $100,000-$800,000 East Yakima Avenue pedestrian areas could be improved with additional street tree changes and street sculpture; or, with a major surface design including pavement, planters, street furniture, skins and shelters. 64 *Capitol Square Located across Third Streetfrom the historic Capital Theatre, this open space contains a shelter, a grove of ornamental fruit trees, seating, and congregating areas, lighting_ and historic infomation signages. $ 75,000 h *Capitol Square Parking Deck ($500,000) Tfuture parking deck over the (approx. $50 sq. existing City parking lot across from the Capitol Theatre is a long term option. It would be a multi- level structure with a setback on the Third Street side for Capitol Square. * Depot Square $125,000 Landscape and renovate the open space in the area within the BN terminal courtyard on the west side of N. Front Street, for the full length of the courtyard. *Seventh Avenue Commons Phase I: $1-'.000 This park is situated on a tri- Phase II: I 000 angle of land between Seventh Avenue, Pierce Street and Summit - view. There are two phases possible, with Phase I consisting of everything north of Browne Avenue and Phase II everything south of Browne Avenue. Cost estimates are for surface improve- ments and do not include land acquisition, demolition or utility relocation. )AI ,. REGULATORY CHANGES To evaluate and monitor the quality of dev- elopment in downtown Yakima, the City of Yak- ima should modify the existing regulatory mech- anisms for downtown development. 1. A Special District ordinance which specifies the activity pattern (not parcel by parcel), and the boundaries to each district. 2. A zoning overlay district for downtown which is in two parts: Part 1, a design guideline for each special district which outlines urban design amenities for public use and benefit on public and private property, amenities which are voluntary with bonuses for compliance by private development; and, Part 2, a required development code for certain special dis- tricts such as historic districts and major retail districts with critical parking and pedestrian circulation problems, where urban design features are mandatory for compliance by private development. These development requirements entail usable ped- estrian open space allocations, special setbacks and design features which est- ablish a better physical relationship to adjacent or nearby developments. An inner City housing policy designed to clarify and regulate the status of housing and neighborhoods within the downtown area; a Neighborhood Plan should be pre- pared by the City to establish hard boun- daries to each neighborhood to determine density, and to designate a strategy for preserving the exisiting house stock re- garding its architectural style and char- acter. 4. A Master Plan requirement for all projects proposing new construction vs. rehab- ilitation or remodeling, where said Master Plan will require building footprint and location, all setbacks, site features such as parking, walkways, service drives and sign locations; and, elevations of buildings indi- cating height, materials and openings, submitted prior to building perit approval. 65 5. Designation by the City of the types of historic properties that are eligible for special valuation under the Special Valuation Tax Assessment Program; 6. Establish a local review board which, in part, will review Special Valuation appli- cations; this Board should be a City-wide "Yakima Heritage Commission" set up to promote and review historic preservation. PART D: KEY FUNDING PROGRAMS I. PARKING AND BUSINESS IMPROVEMENT AREAS (SBIP In order to aid economic development and to facilitate business cooperation, Washington State law (PCW 35.87A) authorizes all counties and all incorporated cities and towns to establish Park- in,, and Business Improvement Areas for the following purposes: A. The acquisition, construction, or mainten- ance of parking facilities for the benefit of the area. B. The decoration of any public place in the area. C. Promotion of public events which are to take place in public places in the area. D. Furnishing the music in any public place in the area. E. Providing professional management, plan- ning, and promotion for the area, including the management and promotion of retail trade activities in the area. In order to assist in the cost of achieving these purposes, cities are authorized to levy special assessments on all businesses within the area specifically benefitted by the parking and im- provement assessment. The city, in accordance with the special provisions of the statute auth- ority, may issue and sell revenue bonds for some of the costs involved in the parking and bus- iness improvement area. To initiate such a process in the establishment of an area, a petition must contain the following: 1. A description of the boundaries of the proposed area; 2. The proposed uses and projects to which proposed special assessments and revenues shall be put, and the total estimated cost thereof; 66 3. The estimated rate of levy of special as - rnents with a proposed breakdown by c...as of business and the assessrne:nt classification to be used. The initiating petition shall also contain the signatures of persons who operate businesses in the proposed area which will pay 50% of the proposed special assessments. The city, after receiving a valid initiation pet- ition or after passage of an initiation resolution, shall adopt a resolution of intention to establish such as area. The resolution shall state the time and place of hearings to be held by legisla- tive authority to consider establishment of an area. It shall state in all the information con- tained in the initiating petition or initiating resolution regarding boundaries, projects and uses, and estimated rates of assessment. In establishing the special assessments, the law has been amended to clarify alternatives available to the program. The legislative authority estab- lishing such assessments may make a reasonable classification of businesses, giving consideration to various factors such as business and occupa- tion taxes imposed, square footage of the bus- inesses, number of employees, gross sales, or other reasonable factors relating to the benefit received, including the degree of benefit - ceived from parking. The bill also elaborated on the purposes served by the previous amendments and refined, without limiting the scope of, permissible purposes to be served by the business improvement area assess- ment district. Specifically, it added for clarif- ication that assessments could aid general econ- omic development and facilitate merchant and business cooperation which assists trade through "providing professional management, planning, and promotion of the area, including the man- agement and promotion of retail trade activities in the area." The legislative authority of each city shall have sole discretion as to how the revenue derived from the special assessment is to be used within the scope of that purpose. However, the legis- lative authority can also appoint existing ad- visory boards or commissions to make recom- mendations as to issues, or the legislative auth- ority, such as the City of Yakima, could create a new advisory board or commission for such purposes. 11. • CAL IMPROVEMENT DISTRICTS: Local Improvement Districts are widely used in the State of Washington to provide for public improvements, particularly streets, sewers, and water programs. A local improvement district is formed and assessments are applied to the pro- perty owners for the cost of the improvements, based on the amount of benefits they receive from the improvements. Often these improve- ments are done on a footage basis; i.e., the amount of property frontage in the case of the street improvement, or the direct cost of the water lines or sewer lines that serve the project on a pro rata basis. In complex situations, often several assessment roles are developed based on a formula that attempts to determine a particular property's benefit from the public improvement. One exam- ple is the construction of parking lots, the cost of those Tots, and the distance of the parking lots from individual property and the nature of the property being served. Chapter 34.43 in the Revised Code of Washington establishes authority for local irnprovement dis- tricts and the requirements for initiating the above proceedings. Authority generally includes construction, reconstruction, repair, or ewed landscaping relative to the following: A. Alleys, avenues, boulevards, lanes, park drives, parkways, public places, public squares, public streets, their grading, regrading, macadamizing, remacadarnizing, graveling, regraveling, piling, repiling, capping, recapping, or other improvements; if the management and control is park drives, parkways, and boulevards is vested in a board of park commissioners, the plans and specifications for the improvement must be approved by the park commissioners before their adoption; B. Auxiliary water systems; C. Auditoriums, field houses, gymnasiums, swimming pools, or other recreation or playground facilities or structures; D. Bridges, culverts, and trestles and appro- aches thereto; 67 E. Bulkheads and retaining walls; F. Dikes and embankments; G. Drains, sewers, and sewer appurtenances which as to trunk sewers shall include as nearly as possible all the territory which can be drained through the trunk sewer and subsewers connected thereto; H. Escalators, moving sidewalks or sky - bridges, together with the expense of operation and maintenance; I. Parks and playgrounds; J. Sidewalks, curbing, and crosswalks; K. Street lighting systems, together with the expense of furnishing electrical energy, maintenance, and operation; L. Underground utilities, transmission lines; M. Water mains, hydrants, and appurtenances which as to trunk watermains shall include as nearly as possible, ass the territory in the zone or district to which water may be distributed from the trunk line mains thro- ugh lateral service and distribution mains and services; N. Fences, culverts, siphons, or coverings or any other feasible safeguards along, in place of, or over open canals or ditches to protect the public from hazards thereof; 0. Road beds, trackage, signalization, storage facilities for rolling stock, overhead and underground wiring, and any other stat- ionary equipment reasonably necessary for the operation of electrified public streetcar lines. Section 35.43.070 specifies action on petition or resolution for such an ordinance to establish an LID. A local improvement may be ordered only by an ordinance of the City or Town Council, pursuant to either resolution or petition thereof. The ordinance must receive the affirmative vote of at least the majority of the members of the Council. Charters of cities of the first class may prescribe further limitations. In cities and towns other than cities of the first class, the ordinance must receive the affirmative vote of at least two-thirds of the members of the Council if, prior to its passage, written objections to its enactments are filed with the City Clerk by or on behalf of the owners of the majority of the linear frontage of the improvement and of the area within limits of the proposed improvement district. HI, SPECIAL VALUATION TAX ASSESSMENT PROGRAM Of immediate concern to private building owners in Yakima is the State of Washington's Special Valuation Tax Incentive Program, which permits a reduction in taxes paid on historic properties for each of ten years. This program stipulates that rehabilitation and application have to be completed by 1991. In 1985, the Washington State Legislature adopted a goal of preserving the State's historic resources, targeting the cen- tennial year celebration. The legislature passed a law which allows a "special valuation for cer- tain designated historic properties within the State." The primary benefit of the law is that during the ten year special valuation period, property taxes will not reflect substantial im- provements made to the property. In effect, the developer is exempt from the shorter term tax burden of restoration values and the City gains the lona term benefit of preserved historic buildings and their increased economic "lives". Only local government which implement the law are eliaible to pass on the tax relief to the public. The local aovernment identifies the types of historic properties that are eligible for special valuation; and designates a local review board that will review applications. A. ELIGIBILITY To be classified as eligible for special valuation, a property must first meet the following criteria: 1. It must be listed in the National Register of Historic Places, indi- vidually, or certified as con- tributing to the significance of a National Register Historic Dis- trict, in order to receive a state- ment that a property is certified as contributing to the signi ce of a National Register ..,ric District, a property owner should contact their local government, or the Washington State Office of Archaeology and Historic Preser- vation, 0 R 2. It must be listed in the Register of Historic Places ablished by a certified government, AND Local est - local 3. It must be a class of properties approved by the local govern- ment. Elirible properties which undergo sub- stantial rehabilitation may receive special valuation if the rehabilitation work is ap- proved by the local review board. The work must have been conducted within two years prior to application, and must he equal to at least 25% of the assessed value of the structure prior to rehabilitation. B. REQUIREMENTS 68 1. Protection of the Property Property owners who want to take - nn- tage of special valuation must si an agreement with the local review boara that guarantees they will meet the following standards during the ten-year property tax exemption period: 0 The property must be maintained in good condition. The owner nus obtain approval from the local review board prior to making further improvements. 0 The property must be visible from a public right-of-way, or otherwise be made available for public view once every year. The penalty for violating the agreement or other program requirements is substantial. All hack taxes which would otherwise have been owed, interest on back taxes, and a penalty equal to 12% of back taxes and interest may be due. If the property is sold, the new owner must sign an agreement with the local review board ensuring the program requirements will be satisfied for the duration of the special valuation period, or the seller may be subject to the penalties discussed above. 2. Qualified Rehabilitation Expenditures The total cost of the rehabilitation must be equal to at least 25% of the assessed value of the property, exclusive of land value, prior to rehabilitation. "Qualified rehab- ilitation expenditures" are expenses charg- able to the project and include improve- ments made to the building within its orig- inal perimeter, architectural and engineer- ing fees, permit and development fees, loan interest, state sales tax and other expenses incurred during the rehabilitation period. Not included are costs associated with acquisition of the property, or the enlarge- ment of the building. The local review hoard in each jurisdiction determines which expenditures are qualified. Qualified rehab- ilitation expenditures for special valuation are the same as those for the federal In- vestment Tax Credits. (For a detailed explanation, see 26 CFR 1.48-12(c). 3. Rehabilitation Standards In order to he eligible for special valuation, properties must retain their historic char- acter after rehabilitation. The standards used by the local review hoard in their review and approval of the rehabilitation work are: The Washington State Advisory Council's Standards for Rehabilitation. The State Advisory Council adopted The Secre- tary of the Interior's Standards 1F Rehab- ilitation and Guidelines for Rehabilitation Historic Buildings as their standards. THE APPLICATION PROCESS An interested property owner files an application with the assessor's office after the rehabilitation work is completed. The assessor transmits the application to the local review board, which schedules a public meeting to discuss the appli- cation. The board may determine the approval or denial of the application at this meeting, or may request additional information. Once the board has made its determination, the applicant and the assessor will be notified within ten days. If the application is filed with the assessor's office before October 1, and approved by the board, special valuation goes into effect the following year. D. DEADLINES TO REMEMBER Application for special valuation must be made no later than 24 months after the beginning of the rehabilitation work. OCTOBER 1 is the deadline for applications when special valuation is desired for the following year. The law expires in 1991, thus no new appli- cations may be made after DECEMBER 31, 1991. E. IMPORTANT CONSIDERATIONS 69 O In order for a historic property to be eligible for special valuation, it must have been substantially rehabilitated within 24 months prior to the date of application. O In order for a phased rehabilitation to he eligible, each phase of the rehabilitation must cost at least 25% of the assessed value of the property, exclusive of land value, prior to commencing that phase of work. Work on each phase rnust have been com- pleted within 24 months prior to the date of application for special valuation for that phase. O Improvements must be consistent with the historic character of the building. During the ten-year period of special valuation, additional improvements to the property are also subject to compliance with The Wash- ington State Advisory Council's Standards tor Pehabilitation. o The property must be maintained in good condition as long as the special valuation is in effect. o Special valuation may apply to a wide range of properties, at the discretion of the local government in each jurisdiction. o Applications may be submitted at any time, however the deadline is October 1 when special valuation is desired for the following year. Reduction in property taxes appears one year after special valuation designation and applies until the year following the end of the ten-year period of special valuation. o Property owners who receive special valua- tion for a rehabilitation project may also apply for the federal Investment Tax Cred- its for the same project. o The program expires in 1991, thus no new applications may be made after December 31, 1991. F. FOR INFORMATION For further information about the special val- uation program, contact: o Washington State Department of Community Development Office of Archaeology and Historic Preser- vation 111 W. 21st Ave. KL -11 Olympia, WA 98504 (206) 753-5010 o Your county assessor G. HOW THE APPLICATION PROCESS WORKS: Applicant: Submits application to assessor no later than 24 months after beg- inning date of rehabilitation work. Asses so r: Reviews application for complete- ness. Verifies legal owner, legal des- criptions, etc. Submits application to local review board within ten working days. H. LOCAL REVIEW BOARD Reviews application and attachments Determines approval or denial of application no later than December 31, of application year. If application is approved, notifies applicant, assessor, and State Advisory Council within ten days Executes agreement with applicant. Returns application to assessor. ASSESSOR: Records agreement,. Files application, agreement and certification statement (if appli- cable) with the county recording authority. Determines special valuation and enters in tax rolls separately from the normal assessed value. J. HOW ELIGIBLE PROPERTIES ARE DEFINED 70 To be eligible for special valuation, a property must be: 1. Listed in the National Register of Historic Places, individually or certified as contri- buting to the significance of National Reg- ister Historic District. or 2. Listed in the Local Register of Historic Places established by a certified local gov- ernment (local governments wishing to become certified should make application to the Washington State Office of Archaelology and Historic Preservation). and 3. It must be a call of historic properties approved by the local government. NOTE: The local government in each com- munity deterrnines which classes of historic properties are eligible for special valuation, and may elect some classes of property from the program. c TIMETABLE Within 2 years prior to date of application: Rehabilitation work begun and completed. Before October 1 (if special valuation is desired for following Year): Applicant submits application Within 10 Working Days: Assessor completes review and submits application to local review board. Before December 31: Local Review Board approves (or denies) application and executes agreement. Within 10 days of issuing their decision: Local Review Board submits approved appli- cation and agreement to assessor; assessor records documents. First Year: January 1: Special valuation effective Second Year through Eleventh Year: Taxes reflect special valuation Tenth Year: Special valuation ends Twelfth Year: Taxes reflect revaluation of property lowing end of special valuation. DETERMINING SPECIAL VALUATION M. SPECIAL VALUATION: FOR THE LOCAL GOV- ERNMENT The action of the local government is the first step in implementing the special valuation pro- gram in each jurisdiction, thus allowing its constituents the potential to realize substantial tax savings. Since passage of the law, approx- imately one dozen local governments have imple- mented the special valuation program. Responsibilities WHEN ESTABLISHING THE SPECIAL VALUATION PROGRAM for the jurisdiction, the local govern- ment must: 1. IMPLEMENT the special valuation law through ordinance or administrative rule. 2. IDENTIFY one or more classes of historic properties in the community which are eligible for special valuation. 3. DESIGNATE a local review applications, deny properties for review board to and approve or special valuation. 4. APPOINT members to the local review board. fol- Important Considerations ° Once the local government has identified a class of eligible historic properties, it may amend the criteria defining the class at any time. However, if the new criteria are more restrictive than the previous criteria, the new criteria may not take effect for a period of 2 years following October 1 of the year in which the change is made. Amend- ments to the criteria will not disqualify properties already subject to special valua- tion. The amount of property tax you will pay is based on the special valuation of your property. Special valuation is simply a vaiue, for property tax purposes, which is calculated by subtracing qualified rehabilitation expenditures from the total assessed value of the property. Your property tax may change from year to year because changes in the assessed value, but the qualified rehabilitation expenditures will continue to be deducted from the new assessment for the full ten-year period of special valuation. 71 The law permits multiple local governments within the same county to jointly designate, under an inter -local agreement, a single local review board to administrate the program. N. SPECIAL. VALUATION: FOR THE ASSESSOR The assessor's role in the special valuation program is limited to processing the application forms and maintaining records of special valua- tion assessments for properties approved by the local review board. The assessor maintains two separate values on the tax rolls -- the special valuation and the normal assessed value -- for affected properties. Responsibilities 1. UPON RECEIPT OF AN APPLICATION, the assessor must: a. RECORD the date of receipt b. REVIEW the application for complete- ness: verify the legal owner - verify the legal description - verify the legal description and parcel or tax account number c. TRANSMIT the application and attach- ments to the local review board within 10 days of receipt. 2. UPON RECEIPT OF AN APPROVED APPLI- CATION and agreement from the local review board, the assessor must: a. RECORD the application, agreement, and certification statement (if appli- cable) b. TRANSMIT (copies) to the county recording authority c. DETERMINE the special valuation: - The total assessed value of the property (including improvements and land), minus the qualified rehabilitation expenditures, equals the special valuation. This special valuation will change to reflect changes in the total ass- essed value, and will be in effect for 10 years. d. ENTER the determine special valuation on the tax rolls separately from the normal assessed value e. CHARGE processing fees to the appli- cant, as necessary, in addition to any fees associated with a title search (these fees shall be payable to the county auditor or county recorder) 72 f. INDICATE the special valuation on yearly tax statement g. RETAIN copies of all documents h. REVALUE properties on the regular revaluation cycle, deducting the cost therefrom to determine the taxable value. 3. UPON TERMINATION of the 10 -year special valuation period, the assessor must: a. REVALUE the property without con- sideration for special valuation b. ENTER the new value on the tax rolls 4. IF THE TERMS OF THE AGREEMENT are violated, OR the property ownership changes without indication that the new owner will sign an agreement to meet the program requirements for the duration of the special valuation period, OR the pro- perty is disqualified for special valuation, the assessor must: a. LEVY the back taxes (which otherwise would have been due) plus interest and penalty: Rehabilitation costs times the levy rate for the elapsed portion of the year, Plus interest (from April 30) normally charged on delinc t tax bills, Plus an additional 12% penalty. (For additional information, see WAC 458-15-090) The Time Lag Due to the lag in property tax payments, special valuation status will precede, by one year, the reduction of taxes due on affected properties. Thus, the reduced tax will apply until the year following the end of the 10 -year special valuation period. Important Deadlines 0 Application for special valuation must be made no later than 24 months after the beginning date of the rehabilitation work. October 1 is the deadline for applications when special valuation is desired for the following year. ° The law expires in 1991, thus no new applications may be made after December 31, 1991. Phased Projects Properties which are rehabiliated in phases may receive special valuation for each phase, pro- vided that qualified rehabilitation expenditures for each phase exceed 25% of the assessed value of the property, exclusive of land value, at the time that phase began. Each phase is treated as though it were a separate project, and is subject to all requirements of the special valuation program. 0. SPECIAL VALUATION: FOR THE LOCAL RE- VIEW BOARD It is helpful for the local review board to meet with an applicant for special valuation before the rehabilitation work begins, and to review their project to ensure that it complies with The Washington State Advisory Council's Standards for Rehabilitation, as well as any additional local standards. This preliminary meeting is manda- ry in some communities, and is suggested as a ,•st step in the special valuation process which may avoid conflicts later on. Responsibilities 1. UPON RECEIPT OF AN APPLICATION from the assessor, the local review board must: a. SCHEDULE a public meeting at which the application will be approved or denied b. DETERMINE eligibility of the property for special evaluation based on the following criteria: - Is the property historic? - Is it included within a class of historic properties determined eligible for special valuation by the local government? - Was the rehabilitation work con- ducted within 24 months prior to the application date? 73 - Does the rehabilitation work comply with State Advisory Coun- cil's Standards by not adversely affecting those elements qualifying the property as historically signi- ficant? c. REVIEW the applicant's documentation of qualified rehabilitation expenditures to assure that they were at least 25% of the assessed value of the property, exclusive of land value, prior to rehabilitation 2. IF THE PROPERTY IS DETERMINED ELIG- IBLE for special valuation, the local review board must: a. PREPARE and enter into an agreement (on behalf of the local government) with the applicant. The agreement must guarantee that certain minimum standards (listed below) met during the 10 -year period of special valuation. b. APPROVE the application upon exec- ution of this agreement with the appli- cant c. TRANSMIT copies of the application, agreement and certification statement (if applicable) to the assessor's office for recording d. NOTIFY the Washington State Advisory Council of the application approval e. MONITOR the property during the 10 -year special valuation period to assure continued compliance with the requirements of the special valuation program 3. IF THE PROPERTY IS DETERMINED INEL- IGIBLE for special valuation, the local review board must: a. ADVISE the applicant of the reason(s) for denial b. EXPLAIN that the applicant may appeal the decision to superior court 4. IF AN APPROVED PROPERTY IS LATER DISQUALIFIED, due to either the owner's failure to comply with the terms of the agreement, OR to a loss of historic value due to alterations, the local review hoard must: NOTIFY the owner, the assessor and the Washington State Advisory Council of the disqualification. Minimum Standards for A Special Valuation Agreement During the 10 -year period of special valuation, the property owner shall: a. MAINTAIN the property in safe and sound condition and protect it from the elements, and repair deteriorated or broken exterior features, in compliance with The Washington State Advisory Councils's Standards for Rehabilitation b. OBTAIN written consent of the local review board prior to making further improvements or alterations to the property c. MAKE the property accessible to the public once each year if it is not normally visible from a public right- of-way d. OBTAI N written consent of the local review board prior to demolishing the property e. NOTIFY the assessor within 30 days if the property becomes disqualified for special valuation, e.g., if the terms of the agreement are violated. If the Property is Sold If an approved property is sold, and the new owner desires continuation of the special valua- tion, he must: SIGN an agreement with the local review board ensuring that program requirements will be satisifed for the duration of the special valuation period. Important Deadlines ° An application for special valuation must be approved or denied before December 31 of the year in which the application is made. ° Within 10 days of approving an application for special valuation, the local review board must notify the applicant and the assessor of their decision and must transmit copies of the application and its attachments, and the agreement, to the assessor's office. ° The law expires in 1991, thus no w applications may be made after Dec r 31, 1991. Phased Projects Properties which are rehabilitated in phases may receive special valuation for each phase, pro- vided that qualified rehabilitation expenditures for each phase exceed 25% of the assessed valua- tion of the property, exclusive of land value, at the time that phase began. Each phase is treat- ed as though it were a separate project, and is subject to all requirements of the special valua- tion program. P. SPECIAL VALUATION: FOR THE APPLICANT 74 Applications for special valuation will be review- ed, and approved or denied, by a local review board designated by the local government. The board will make their determination at a public meeting, during which the applicant may be present. It is advisable (and in some communities it is mandatory) for the applicant to consult with the local review hoard before beginning the rehab- ilitation work, to ensure that the project will comply with the board's standards. Responsihi1it1es 1. WHILE CONDUCTING THE REHABILITA- TION, the applicant must: a. MONITOR rehabilitation work to ensure that it conforms with The Washington State Advisory Council's Standards for Rehabilitation. b. MAINTAIN accurate records of project costs, and dates of project work. 2. WHEN APPLYING FOR SPECIAL VALUA- TION, the applicant must: FILE an application for special valua- tion with the assessor's office (on the Department of Revenue form) no later than two years after beginning the rehabilitation project. The application must include as attachments: a. The legal description of the property b. Comprehensive exterior and interior photographs of the property before and after rehabilitation c. Architectural plans or other legible drawings depicting the completed project d. A notarized affidavit attesting to the actual cost of the rehabilitation work e. A statement from (the appropriate local official) indicating that the property is a certified historic structure if it is located in a historic district. 3. IF THE PROJECT IS APPROVED, the appli- cant must: a. SIGN an agreement with the local review hoard guaranteeing that dur- ing the 10 -year period of special valuation he or she shall: - MAINTAIN the property in safe and sound condition and protect it from the elements, and repair deteriorated or broken exterior features, in compliance with The Washington State Advisory Coun- cil's Standards for Rehabilitation - OBTAIN written consent of the local review board prior to making further improvements or altera- tions to the property - MAKE the property accessible to the public once each year if it is not normally visible from a public right-of-way - OBTAI N written consent of the local review board prior to demol- ishing the property - NOTIFY the Assessor within 30 days if the property becomes disqualified for special valuation, e.g., if the terms of the agree- ment are violated b. PAY processing fees (and title search fees, if required) charged by the assessor's office 4. IF THE PROJECT IS DENIED, because the property is determined ineligible for special valuation, the applicant may: APPEAL the decision of the Local Review Board to Superior Court, or the County Board of Equalization 5. IF THE PROPERTY IS LATER DISQUAL- IFIED for special valuation, or in the event of any dispute, the applicant may: APPEAL to the county board of equal- ization. 75 6. IF THE PROPERTY IS SOLD, and the new owner desires continuation of the special valuation, he or she must: SIGN an agreement with the local review board ensuring that the pro- gram requirements will be satisfied for the duration of the special valuation period. Important Deadlines o Application for special valuation must be made no later than 24 months after the beginning date of the rehabilitation work o October 1 is the deadline for applications when special valuation is desired for the following year. NOTE: due to the lag in property tax payments, the tax reduction will appear one year after special valuation designation, and it applies until the year following the end of the 10 -year special valuation period. o The law expires in 1991, thus no new applications may be made after December 31, 1991. Phased Projects Properties which are rehabilitated in phases may receive special valuation for each phase, provid- ed that qualified rehabilitation expenditures for each phase exceed 25% of the assessed valuation of the property, exclusive of land value, at the time that phase began. Each phase is treated as though it were a separate project, and is subject to all requirements of the special valuation program.