Tampa's Channelside District redevelopment: funding, business recruitment, and residential attraction

¶ … TAMPA'S STRATEGIC ACTION PLAN for the REDEVELOPMENT of the CHANNELSIDE DISTRICT

The objective of this work is the conduction of a critical analysis of Tampa's strategic action plan for the redevelopment of the Channelside District. The status of this plan will be analyzed as well as the issues faced such as funding and brining in new business and in attracting people to reside in the Channelside District.. The issues that are stalling this plan and the actions required by the government to make the Channelside District project come to life.

Tampa is a city on the west coast of Florida "...anchoring a major metropolitan region that includes diverse and economically vibrant communities. Tampa is one of Florida's leading cities, offering a wide range of economic and lifestyle opportunities. As the City continues to mature and reached first stage build out, infill redevelopment of its inner core residential neighborhoods has occurred." (Channel District Redevelopment Area Strategic Action Plan, nd) Coordinated city government efforts and ongoing market forces has resulted in the "...urban downtown core faces similar revitalization interest, as new higher density residential uses are added the area. One of Tampa's core areas experiencing urban redevelopment is the Channel District Community Redevelopment Area.

BACKGROUND

The Channel District is facing dramatic change as its future development pattern emerges at the onset of the 21st Century. The 200-acre redevelopment area on the eastern side of the downtown peninsula has emerged from its industrial past. Originally the Channel District housed heavy shipping, loading and marine services along the Ybor and Garrison Channels and grew to include the first new residential development adaptively reusing the area's historical warehouse pattern Today however, the District is evolving dramatically to include increased tourism-related cruise industry uses, and higher-density residential and mixed-use projects. New urban dwellers are being drawn to this unique urban waterfront area in increasing numbers." (Channel District Redevelopment Area Strategic Action Plan, nd) it is related that the Channel District has historically been characterized by change and since the original 1920s development this district has been "reinvented and renamed several times as market forces dictated change." (Channel District Redevelopment Area Strategic Action Plan, nd) Originally, the residential community was a part of the labor workforce housing of the City and this was completely replaced with cold storage warehousing and other general cargo activities needed for the Port's active general cargo trade. This area of the city was...vital until the late 1970's, when container shipping was developed and the shipping business moved to other ports of entry.

I. COMMUNITY REDEVELOPMENT AREA DESIGNATION for the DISTRICT

After several decades of relative decline and inactivity, the District gained new importance as targeted public investment in infrastructure by the City and the Port Authority began to reverse the decline. The development of the Florida Aquarium, new cruise terminals, Channelside mixed-use development, redevelopment of Channelside Drive, and the TECO Line Streetcar System brought increased activity. And supported cruise industry expansion. Recent City of Tampa redevelopment initiatives, including establishment of the Community Redevelopment Area designation for the District, and the Tampa-Hillsborough County Expressway Authority's current development of Meridian Avenue as a major transportation improvement gateway has energized the current development impetus. The new urban form rising in the area today represents the Channel District's 21st century form of mid/high rise and high-density mixed-use development. Without question, the Channel District represents a unique opportunity for the Tampa community to guide the development of a special place; a new and different urban, mixed-use, transit-related residential neighborhood, adjacent to the Central Business District. (Channel District Redevelopment Area Strategic Action Plan, nd)

It is stated in the Channel District Redevelopment Act - Strategic Actions Plan that Creation of this Strategic Action Plan (SAP) was initiated by the City of Tampa with the clear intent to understand and guide the market forces transforming the Channel District, and proactively plan for the area's physical build-out with the capital and aesthetic improvements required to provide new infrastructure, a superior public realm environment and quality of life for all of its residents and visitors. The Plan has been crafted to document the District's existing conditions and plan for future growth, in the context of the collective redevelopment activity that is occurring in the City of Tampa's Central Business District and surrounding urban center the SAP responds to the collective citizen, private development, public agency staff and officials input received during the planning process. It represents a balance between previous development decisions with guidance provided for future public and private development actions in delivering a high quality and functioning City neighborhood." (Channel District Redevelopment Area Strategic Action Plan, nd)

II. GUIDING PRINCIPLES

The Strategic Action Plan is stated to be inclusive of the following 'Guiding Principles':

Understand the District's relationship with the CBD and surrounding urban core neighborhoods;

Balance the District's development projections with other sub-areas of the urban core;

Create a strong, urban neighborhood while respecting the existing sense of place and community; and Recognize and accommodate the current development pattern, and City Council zoning precedents and commit

Maintain the momentum of development activity in the District;

Create a good redevelopment environment by emphasizing design quality for both private development and the public realm;

Emphasize the importance of infrastructure and urban design/public realm improvements to the continued success of the District redevelopment process;

Recognize both the development potential and public realm/infrastructure potential for the properties located on the east and south sides of Channelside Drive;

Accommodate the potential for new development in the District at varying heights, densities and architectural styles;

Provide realistic and creative public financing recommendations for the improvements required in the District. (Channel District Redevelopment Area Strategic Action Plan, nd)

III. KEY MARKET CONDITIONS BENCHMARKS

Key market condition benchmarks that the Channel District planning process identified are the following:

1) Residential development increase to 6,330 units by 2025.

2) Population increase to 12,027 persons by 2025.

3) Employment increase to 8,823 jobs by 2025.

4) Commercial development to 1.89M square feet by 2025.

5) Office development to 1.43M square feet by 2025.

6) Tourism visitors to reach 1.5M persons per year by 2025. (Channel District Redevelopment Area Strategic Action Plan, nd)

The Channel District Redevelopment Area Strategic Action Plan states that the "existing deficient conditions and future programming of major infrastructure systems is critically important to the future redevelopment of the Channel District." (Channel District Redevelopment Area Strategic Action Plan, nd) the Strategic Actions Plan is stated to inventory the systems already existing and makes identification of the preliminary improvements that are required in meeting the projected build-out of study area. It is reported that the roadways currently existing in the Channel District are "laid out in a grid, which is divided by four primary north-south routes and six primary east-west routes. The roads vary in size and traffic volume, and generally have narrow right-of-ways (ROW)." (Channel District Redevelopment Area Strategic Action Plan, nd)

Because of the age and the original design for service in an industrial area, they do not fit the developing character of the District." (Channel District Redevelopment Area Strategic Action Plan, nd) the following is a listing of the streets in the Channel District:

North-South Routes East-West Routes

Channelwide Drive Twiggs Street

11th Street Madison Street

12th Street Kennedy Boulevard/SR 60

14th Street Washington Street

Meridian Avenue Whiting Street

Beneficial Drive Cumberland Avenue

N. Raymond Avenue Channelside Drive

Garrison Street E. Harbor Street

Seaport Street E. York Street

Current Roadway Level of Service (LOS)

V. UTILITY SYSTEMS

The Channel District project report states that a list provided by the City of Tampa contained all the names of utility owners and all of the same were provided with notification of the meeting that was to be held for the purpose of presentation of the intent of the SAP as well as for identification of the existing utility system structure. Results and activities for each of these are reported as follows:

1) Power-Tampa Electric Company (TEC): There are a number of overhead utilities within the District. They are primarily power distribution facilities owned by TECO. The company owns all the poles that support these facilities. Within the core of the District, power service to the existing developments is primarily through polemounted transformers. A TECO substation located at the southwest corner of Washington Street and 11th Street services the distribution system. An overhead transmission line entering the Channel District from the area of Adamo Drive and Channelside Drive services this substation. From this point, the transmission main runs along the south side of Lee Roy Selmon Expressway ROW to N. 12th Street, turning south through 12th Street ROW to Twiggs Street, and turning west down the Twiggs Street ROW to Meridian Avenue. From this point the transmission line heads south through Meridian Avenue ROW to Washington Street intersection. From this point the facility splits into two lines one heading west to CBD and one east to service the substation.' (Channel District Redevelopment Area Strategic Action Plan, nd)

Proposed changes are stated to be inclusive of eliminating lines overhead and placing underground facilities in their proper location. Proposed as well for elimination of the overhead transmission lines affects on the core area of the District is the continuation of the transmission line that runs on the south edge of the Lee Roy Selmon Expressway ROW to Meridian Avenue. It is held by the report that this particular location "will require close coordination with THEA and the developments along the south border of the Expressway ROW.

2) Natural Gas - TECO Peoples Gas: The Channel District is currently served by natural gas. TECO Peoples Gas owns these facilities. They identified these lines and provided a general plan of expansion. However, without specific projects to consider, Peoples Gas has identified that they cannot provide a specific design for expanded use in the District. (Channel District Redevelopment Area Strategic Action Plan, nd)

VI. COMMUNICATION SYSTEMS

The communication system for the Channel District is stated in the project report to be "served by a number of different communication companies. Most of these lines are located underground with some however, located via overhead lines and placed on TECO poles. The plan states that these lines fall within the requirements of the District improvement plan which states that they are to be buried underground. The plan proposes that "...the various communication lines be combined into one duct bank within each road ROW, especially, as part of the complete reconstruction of the 60' ROW roads." (Channel District Redevelopment Area Strategic Action Plan, nd)

VII. FIRE STATIONS

The 'Fire Station and Berth Facility' specifics have been planned collaboratively between city staff and consulting Tampa Fire Department staff in order to review the developments that are predicted and the accompanying growth of the Channel District's population. Indications of the Fire Department are stated as "at a minimum a new EMS facility would be required given the 20,000 people who will eventually work and live within the area. Additionally stated is that the Fire Department "is in the process of activating a new fireboat, which they may consider having berthed in the District, provided such facilities can be incorporated into the Port's operation. It would be preferred to combine the two facilities into one, along the waterfront. This type of facility will require a comprehensive study as well as review and close coordination with the Tampa Port Authority. This effort is beyond the current scope of work. However, an estimated budget has been established for such facility." (Channel District Redevelopment Area Strategic Action Plan, nd)

VIII. TRANSPORTATION SYSTEMS

The transportation system proposed infrastructure improvements estimate that the population of the Channel District is a total in excess of 12,000 residents and workers by 2025 and that the "influx of people and automobiles will make roadway improvements crucial to maintaining a viable neighborhood with adequate transportation links to the Central Business District and points beyond. The community will also require a safe pedestrian experience within the District. Transportation improvements will need to be made to address pedestrian circulation and safety." (Channel District Redevelopment Area Strategic Action Plan, nd)

The Strategic Action Plan envisions three transportation improvements which are stated to be "...primarily for enhancement of the roads to fit the developing/envisioned character of the district and do not represent capacity improvements. Once the improvements are completed, the north-south streets will have reduced capacity as a result of the increased traffic calming (on street parking, etc.) and enhanced pedestrian circulation." (Channel District Redevelopment Area Strategic Action Plan, nd) Improvements are stated to include those as follows:

The complete reconstruction and enhancement of existing roadways, and improved and/or new signalization; and Four traffic signals are proposed for improved pedestrian facilities.

The roads that will be completely reconstructed will be "...designed with improved pavement section, drainage, upsized/new utilities, and pedestrian facilities, as well as, public realm improvements." (Channel District Redevelopment Area Strategic Action Plan, nd) Roads that will be improved with two-lane sections with on-street parking are the following:

11th Street

12th Street

E. Madison Street

These streets are stated to be the likely primary "internal north-south pedestrian circulation with vehicle access for developments while providing on-street parking for the commercial developments." (Channel District Redevelopment Area Strategic Action Plan, nd)

Streets that will be designed with a two-lane section and a left turn lane and one side on-street parking are the following:

Washington Street

Whiting Street

Cumberland Avenue

Streets that will connect to the primary collector roads (Channelside Drive and Meridian Avenue) with the addition of left turn lanes at all intersections for better traffic circulation and include the following:

E. York Street

E. McKay Street

E. Harbor Street

14th Street

The report states that these roads are the controlled property of the Tampa Port Authority (TPA) however Tampa has not as of yet established a master plan for these properties and there is a belief that these roads will be either adjusted or realigned and possibly both. The report additionally relates that enhancement of existing roadways will be ongoing including the roads as follows:

Channelside Drive,

Twiggs Street, and Kennedy Boulevard.

The improvements as laid out in this report state that better pedestrian access will be enabled. The installation and adjustment of the utilities, installation of new facilities and the new or improved utilities will make a requirement of reconstruction of the pavement structural section within the limits of the impacted areas." (Channel District Redevelopment Area Strategic Action Plan, nd) Stated additionally other than improving the public realm the improvements will make a requirement of "at a minimum total milling and overlay of the existing payments." (Channel District Redevelopment Area Strategic Action Plan, nd) Public realm improvements are stated to include the following improvements:

Enhanced pedestrian / bicycle ways;

Enhanced street and pedestrian lighting';

Enhanced landscaping and streetscaping;

Addition of street furnishings; and Addition of on-street parking and urban trail on Twiggs Street. (Channel District Redevelopment Area Strategic Action Plan, nd)

Signalization that is proposed includes additions throughout the Channel District will be focused toward flow improvement and the increasing of the "...number of safe pedestrian crossings." (Channel District Redevelopment Area Strategic Action Plan, nd) the probable cost of the improvements are stated in summary in the following table labeled Figure 4 in this study.

Estimate of Infrastructure Improvement Cost

Source: Channel District Redevelopment Area Strategic Action Plan, nd

Stated as the actions and activities that are require to implement the infrastructure policy recommendations are the following:

Provide incentives for the developers to install and be reimbursed for some of these improvements;

Develop new regulations that result in developments providing some of these improvements, or provide funding for them;

Development of a Capital Improvements Program to implement the required improvements; and Develop a reimbursement program for Channel District developers who are willing to install portions of the City's work. (Channel District Redevelopment Area Strategic Action Plan, nd)

The project report states that the improvements to private sector include the following actions:

Roadway Improvements;

Installing Core Utilities;

Installing Private Utilities;

Accommodating Private Utilities' needs to keep existing customer in service;

Use of regional stormwater treatment facility;

Provision of Public Parking and other infrastructure and amenities;

Park Open Space / Parks; and Public Art / Gateway Entry Elements. (Channel District Redevelopment Area Strategic Action Plan, nd)

IX. PROJECT PHASING

Stated as recommendations for phasing of the project implementing the SAP improvements proposed is the following phasing and five-year strategy recommendations:

One Year

Establish CIP Funding Mechanism.

Establish an incentive program for developers to provide some of the improvements.

Establish reimbursement program for developers who are willing to do additional work than what is required for their development.

Develop project delivery program

Data collection (survey, etc.).

Preliminary engineering.

Initiate permitting.

Engineering/permitting/construction plans/bid for stormwater treatment system.

City to develop the program management of the work proposed by developers.

Five Year

Complete projects that Channel District developers are unable to.

Install core utilities under Channelside Drive, Kennedy Boulevard, and Twiggs Street.

Construct stormwater treatment system.

Install water improvements needed outside of the District.

Upgrade sanitary sewer lift station.

Upgrade sanitary sewer gravity main in Adamo Drive.

Install private utilities under Channelside Drive, Kennedy Boulevard, and Twiggs Street.

Complete power, communication, and gas line improvements.

Complete Channelside Drive, Kennedy Boulevard and Twiggs Street Enhancements (Infrastructure & Public Realm).

Adjust TECO overhead transmission.

Complete parks and trails.

Complete the fire station/berth facility.

Manage work proposed by developers.

Ten Year

Complete work not undertaken in areas that are/were expected to be completed by developers.

X. PHASE-SPECIFIC INFORMATION

The first phase includes the following with descriptions of each subpart of this phase within the plan:

Preliminary Infrastructure Design Plans (Area-wide Systems) - survey data will be provided as well as the preliminary design and costs estimates as well as a final design for area-wide systems that will not meet completion through private development including:

survey data collection;

Design development (15% plans)

Preliminary engineering design (30% plans)

Preliminary cost estimates (10% contingency)

Final engineering design (60%, 90%, 100%, Final plans) and Construction services. (Channel District Redevelopment Area Strategic Action Plan, nd)

Plans for other areas in the District either follow the same phase planning or are listed as 'developer coordination'.

XI URBAN PLANNING for RESIDENTIAL HOUSING

The planning principles that are stated to be those utilized by the Channel District and the entire City of Tampa project planning are those which adhere to the Hope IV project 'Principles for Inner City Neighborhood Design'. Hope IV is a collaboration of the Congress of the New Urbanism and the U.S. Department of Housing and Urban Development. The principles of HOPE IV are stated to bring "high quality design to the buildings, streets, parks and public places in the community and includes a "self-help process" in which "every home, regardless of the resident's income is both functional and attractive." (Channel District Redevelopment Area Strategic Action Plan, nd) HOPE IV has the goals stated as follows:

Citizen and Community Involvement: Engage residents, neighbors, civic leaders, politicians, bureaucrats, developers, and local institutions throughout the process of designing change for neighborhoods.

Economic Opportunity: The design of neighborhood development should accommodate management techniques and scales of construction that can be contracted to local and minority businesses.

Diversity: Provide a broad range of housing types and price levels to bring people of diverse ages, races, and incomes into daily interaction -- strengthening the personal and civic bonds essential to an authentic community.

Neighborhoods: Neighborhoods are compact, pedestrian-friendly, and mixed use with many activities of daily life available within walking distance. New development should help repair existing neighborhoods or create new ones and should not take the form of an isolated "project."

Infill Development: Reclaim and repair blighted and abandoned areas within existing neighborhoods by using infill development strategically to conserve economic investment and social fabric.

Mixed Use: Promote the creation of mixed use neighborhoods that support the functions of daily life: employment, recreation, retail, and civic and educational institutions.

City-wide and Regional Connections: Neighborhoods should be connected to regional patterns of transportation and land use, to open space, and to natural systems.

Streets: The primary task of all urban architecture and landscape design is the physical definition of streets and public spaces as places of shared use. Neighborhoods should have an interconnected network of streets and public open space.

Public Open Space: The interconnected network of streets and public open space should provide opportunities for recreation and appropriate settings for civic buildings.

Safety and Civic Engagement: The relationship of buildings and streets should enable neighbors to create a safe and stable neighborhood by providing "eyes on the street" and should encourage interaction and community identity. Provide a clear definition of public and private realm through block and street design that responds to local traditions.

Dwelling as Mirror of Self: Recognize the dwelling as the basic element of a neighborhood and as the key to self-esteem and community pride. This includes the clear definition of outdoor space for each dwelling.

Accessibility: Buildings should be designed to be accessible and visitable while respecting the traditional urban fabric.

Local Architectural Character: The image and character of new development should respond to the best traditions of residential and mixed use architecture in the area.

Design Codes: The economic health and harmonious evolution of neighborhoods can be improved through graphic urban design codes that serve as predictable guides for change. (Channel District Redevelopment Area Strategic Action Plan, nd)

It is reported in this study that a workshop was held in 2005 for the community in the Channel District and that the workshop's purpose was sharing of information as gathering of public input to the Channel District Community Redevelopment Area (CRA) and its Strategic action Plan. The plan's purpose is stated to be the "review of current district conditions, identification of market trends and generation of recommended actions for implementation. Specifically stated as the objectives of the workshop were the following:

need exists to understand the Channel District's history and current progress or urban redevelopment;

There is a need to develop criteria for the City's use in evaluating new Channel District projects by utilizing similar national redevelopment examples;

There is a need to identify public facilities and amenity improvements desired as part of the updated design guidelines; and There is a need to solicit participants' views and feelings about the future of the Channel District. (Channel District Redevelopment Area Strategic Action Plan, nd)

The Mayor is stated to have made the following points in the speech given at the workshop:

Like Palma Ceia, Davis Islands, and Hyde Park in Tampa's early history, today we are essentially the participants in a process for creating an entirely new neighborhood.

2) Very significant opportunity to shape how we want it to be developed.

3) One of the issues with the Channel District is that it is growing as we speak, which poses a) a difficult challenge with so much development already occurring.

A b) There isn't much time to plan what's there.

As soon as the concept caught on, it spread like wildfire.

4) TIF is established and there needs to be a plan on how to spend the revenues.

A a) Smart allocation of TIF money will allow us to remake the neighborhood.

A b) Can use the TIF revenue to help create a pedestrian-friendly environment with good streetscapes; and Have the power to choose lamps, benches, etc.

Related as the most significant of issues by the mayor in the speech noted above include the following:

FAR - What kind of density are we going to have?

If developers want higher density what should be the tradeoffs

Other issues include those of: (1) Greenspace: (a) many developments already being built; (b) concerned about park space; and - needs to be planned early, and then built; and (2) Streetscape: (a) differentiate between streetscape; (b) generic overall quality required. (Channel District Redevelopment Area Strategic Action Plan, nd)

It is reported that a study was conducted through participants completing a survey relating to their feelings about the future of the Channel District. A total of 38 respondents completed and returned surveys and the breakdown of respondents is stated to be as follows:

Residents/property owners - 39%

Public servants - 24%

Developers - 17%

Other (realtor, urban living proponent, business organization, public library friends, urban advocate) - 20%

The report of the survey/questionnaire study reported includes the developers, public servants, and others in the varying sectors of the population and their responses regarding the project and its ongoing constructions which include the following response when participants were quizzed concerning that which they felt positive about in terms of the development, design and construction in the Channel District:

Developers

First floor retail, walling area, large landscape, sidewalks, connection with downtown, Ybor City, etc.

City of Tampa lead and direction;

Great interest from the city developers and residents of Channelside;

Great potential to create a vibrant urban community. Density is a positive and development can be managed to benefit the neighborhood;

Ability to effect change in district;

Residential in a variety of concepts, streetscape / landscaping, pedestrian friendly.

Public Servants:

The potential, the public involvement already done. The emotional investment that is so evident

Residential will happen

Had good examples of architecture

Public spaces for people interaction

Participants were passionate

People, energy, proposed revision to code

Level of intent - city & developers

The economical proposals and urban feel reminds me of downtown St. Pete a bit

If the city really listens to the residents' input and developers produce what they hear then the CD has a bright future

The comparison to other cities comparative in nature. The company consultants have a larger vision and understand what is needed.

Other:

The current situation has galvanized the community

It with careful planning and consideration would be a beautiful place to live see Channelside as Tampa emerging into a world class district

Interest in developing area feel CD needs total mixed use which means an FAR of 2.5-6.5

The market is growing

Tampa moving towards becoming a 24/7 city

People moving in, unique properties that so many of us care about what things look like.

Concerns stated by respondents in this survey include those as follows relating to the community redevelopment project in the Channel District.

Residents

Lack of grand vision and lack of city support (direction - plan)

High FAR

Fairness in funding when other occupants in the area have not moved in to share their views & out of pocket expenses, therefore we need a continuance

Height of new developments, density of new developments, turn Conagra into a park

Communication about parks

Channel side needs to stay on original plan - no high rise structures

That massive tower high rise buildings will be approved and built in the middle of the CD already established low to mid rise district

The developers lack of working within the existing height requirements

Increase in height and FAR within the core of the district

Current residents are only focused on themselves. Revenues from higher density and tourist accommodations also very important

Density/traffic

Parking, green space, building heights, traffic congestion, trees/parks, bury utilities, street lighting

We do not want to have a few stop progress.

Developers

Do not focus only on fancy design but focus 110% on lovely area as a place where you can get your daily needs by walking and making friends. More people you bring on sidewalk more attractive will be Channel side plazas, terraces, small stores, etc.

Forgetting that the residential density is what makes the retail parks work and overall an enjoyable neighborhood.

Developers become frustrated and cannot balance the risk vs. reward equation. Very few people actually live in Channelside. That needs to change to create a sustainable neighborhood;

Undue emotional concerns about height and density

Lack of grand vision and lack of city support

General public w / limited or non-existent urban planning knowledge get caught up in setting across the board development restrictions that has a negative long lasting impact.

Public Servant:

Timing, historic missteps, governmental agency coordination

Creating sound regulations and attractive living areas

Department of transportation adapting to the urban environment

Some residents too concerned about individual interests rather than the district and the City, misunderstanding of "affordable housing" issue for the city

Width of sidewalk next to high rises. Developer participation in provision of open spaces and parks

Meeting everyone's needs and concerns

That we don't forget about the arts

Traffic congestion.

Other:

The relationship between governmental and private interests

It will fail!

Rename to CD and include the Forum in the district. (Channel District Redevelopment Area Strategic Action Plan, nd)

SUMMARY & CONCLUSION

The Channel District appears to have carefully addressed all aspects of redevelopment including that of public utilities as well as design, architectural constructions, sustainability in construction, transportation issues and pedestrian issues. The plans also include proactive phase checking for any problems that might arise during the implementation of the plan. This project planning is adherent to HOPE IV urban design and development principles.