A critical analysis of Tampa's Channelside District redevelopment strategy

¶ … 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)

IV. POTABLE WATER SYSTEM

The existing potable water system in the Channel District is stated to receive its supply through a water main that is 30-inches in diameter and that enters the Channel District on the north end and then runs south along Meridian Avenue. The main is additionally connected to both Harbour Island and the Central Business District. The Channel District's wastewater is "primarily collected and conveyed by gravity." (Channel District Redevelopment Area Strategic Action Plan, nd) There are two sanitary sewer systems in the Channel District, each separate from the other with one designated to the north and another designated to the south. The report states: "The northern system covers the area from Washington Street north. It collects and conveys to a lift station on the east side of 12th Street, north of Twiggs Street. The 14-inch force main from this lift station discharges into a gravity manhole at the intersection of Channelside Drive and Adamo Drive. The outfall pipe from this manhole, to the east, is an 18-inch Vitrified Clay (VC) gravity line. The southern system covers the area from Washington Street south and collects and conveys to a manhole at the intersection of Channelside Drive and Meridian Avenue. The outfall pipe from this manhole to the west is a 24-inch PVC gravity pipe. Refer to City of Tampa Sanitary Sewer Atlas." (Channel District Redevelopment Area Strategic Action Plan, nd)

It is stated that an expected increase in demand to the potable water supply will arise as a direct result of population growth and the "number of dwelling units within the District..." (Channel District Redevelopment Area Strategic Action Plan, nd) Because of this increase in demand there must be a facilities upgrade and additions such as new water lines to the water system. The projected water demand for the Channelside District include those listed in the following table labeled Figure 3 in this study.

Channel District Projected Water Demand

Source: Channel District Redevelopment Area Strategic Action Plan, nd

It is stated in the project report that the projected water demand has been reviewed by the City of Tampa Water Department and that these improvements "...are based on the assumption of water availability at the intersection of Channelside Drive and Adamo Drive. It is anticipated that extension of a new transmission main from other City water mains to this location may be required. A water main connecting at that intersection will be outside of the Channel District boundary, and therefore may require alternative funding mechanisms than those within the District. The Water Department is evaluating the need for this facility with consideration to other City needs. Size and location of such a facility should be identified prior to initiating the design of the District's upgraded system. One such facility is a water transmission main from the Cass Street/Pierce Street intersection to Adamo Drive/Channelside Drive intersection the storm water system in the Channel District collects the stormwater and conveys is through a series of inlets and pipes both inside and outside of the district. It is related in the report that a small part of the District receives 'water quality treatment' and that these areas are 'primarily the developments that have been constructed since the early 1990's.' (Channel District Redevelopment Area Strategic Action Plan, nd)

Wastewater needs were estimated by using the same information stated in Figure 3 above these demands were reviewed by the City of Tampa Wastewater Department who proposed improvements which included: (1) upgrading of the lift station; (2) upsizing of certain collector gravity lines; and (3) improvement of the 19-inch factor in the availability of additional capacity in the northern system." (Channel District Redevelopment Area Strategic Action Plan, nd) There are stated to be two way s that improvement to the line would enable increased capacity: (1) could be upsized; or (2) the force main could be extended to the manhole at the intersection of Adamo Drive and North15th Street. (Channel District Redevelopment Area Strategic Action Plan, nd) the project report states that it will be better to upgrade instead of keeping the existing lines since the age of these lines will result in more problems and higher costs in the long-term.

The storm water system will follow the process of the roadway improvements and will be upgraded accordingly. Requirements of the Southwest Florida Water Management District (SWFWMD) are that proposed improvements receive water quality treatments. Recent developments including the Garrison Seaport Center as well as Cruise Terminals #3 and #4 have all either installed or permitted underground facilities specifically for treating runoff from stormwater. Additionally, residential projects are also proposing facilities for underground stormwater treatment. Toward this end, the project report states that the "...consultant team and City staff met with SWFWMD to discuss the potential for a regional treatment system that could be used by both individual developments as equivalent treatment, and for the treatment of city streets. SWFWMD had no objection to such facilities provided they meet their regulations at the time of permitting and construction. In this scenario, developments would be required to pay a fee for using a part of the City system as an equivalent treatment or if they fall within the treatment basin. However, due to space limitations, the availability of property, the number of basins conveyed through the District, and major conflicts with existing and proposed improvements, District wide water quality treatment is not feasible. The proposed alternative is for two underground systems constructed to provide treatment for the York Basin and McKay Basin, which are approximately 35 acres each. It is proposed that each system will be designed to provide treatment for the first 1/2-inch of runoff. The outfall pipes from these basins currently discharge into the Ybor Channel through a 48-inch Reinforced Concrete Pipe (RCP) under York Street and a 42-inch RCP under McKay Street. Once constructed, the runoff from each basin will be directed to the underground treatment system prior to discharge into the Ybor Channel through the existing outfalls. The proposed system is a pre-cast vault system with an underdrain for water quality treatment. Each system being will be installed under the roadway surface, within the right-of-way of York Street and McKay Street. Prior to construction, the Tampa Port Authority (TPA) will review final design plans. Because the proposed vaults are to be installed in existing ROW, alternative designs may have to be considered as TPA develops plans for the surrounding property. The City will be responsible for maintenance and operation of these facilities once constructed." (Channel District Redevelopment Area Strategic Action Plan, nd)

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: