elgin - Economic Development

E LG I N
T H E S U S TA I N A B L E P L AC E S P R O J E C T
ND
W. 2 ST.
Elgin
Fire Dept.
Lundgren
Newt’s Gin
Event Center
ST
E. 1 ST.
ST
U.S.
Post
Office
Lundgren
N. MAIN ST.
N. AVE. C
N. AVE. B
N. AVE. A
W. 1 ST.
DEPOT ST.
Elgin Depot
Museum
Veteran’s
Memorial Park
S. MAIN ST.
S. AVE. C
S. AVE. A
S. AVE. B
W. AUSTIN ST.
FINAL
NOVEMBER 2013
MARTIN LUTHER KING BLVD.
CENTRAL AVE.
Disclaimer: The work that provided the basis for this publication was supported by funding under an award with the U.S. Department of Housing and Urban
Development. The substance and findings of the work are dedicated to the public. The author and publisher are solely responsible for the accuracy of the
statements and interpretations contained in this publication. Such interpretations do not necessarily reflect the views of the Government.
E LG I N
T H E S U S TA I N A B L E P L AC E S P R O J E C T
FINAL
NOVEMBER 22, 2013
Table of Contents
1. Executive Summary����������������������������������������������������������������3
8. Appendices:
2. Introduction�����������������������������������������������������������������������������5
A. City of Elgin SPP Application
3. Planning Process���������������������������������������������������������������������9
B. Community Visioning Survey
4. Issues, Opportunities and Objectives���������������������������������12
C. Community Preference Survey
5. Planning Scenarios����������������������������������������������������������������14
D. Summary of Relevant Plans and Policies
6. Action Plan
E. Summary of Economic and Demographic Conditions
6.1 Illustrative Plan��������������������������������������������������������23
F. Analytic Tool Indicator Results
6.2 Phasing and Implementation .Strategy����������������31
G. Estimate of Public Improvement Costs
6.3 Recommended Planning Policy and Code H. Tax Increment Financing District Projections
Amendments���������������������������������������������������������35
7. Acknowledgments���������������������������������������������������������������41
November 22, 2013
I. Recommended Downtown Overlay Zoning Districts
J. Recommended Subdivision Ordinance Amendments
T H E S U S TA I N A B L E P L AC E S P R O J E C T
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1. Executive Summary
Elgin is one of five cities in Central Texas chosen to participate in the
Sustainable Places Project, an ambitious regional planning initiative
aimed at helping communities create the conditions for livable places,
consistent with local goals and values. The project offers professional
assistance in community outreach, development planning,
economic and market research, and financial planning of the priority
“Demonstration Site” projects.
The Sustainable Places Project was a two-year public-participation
and scenario planning process guided by six livability principles that
used an innovative, GIS-based analytic tool for scenario planning.
The public process yielded various planning scenarios for Elgin that
were further refined into an action plan for the City and a guide for
potential development to shape a sustainable future.
Residents and stakeholders identified a variety of concerns and ideas
about what desirable growth could look like in Elgin. These included:
leveraging Elgin’s unique character and agricultural heritage; ensuring
that young people have opportunities to stay in the community;
enhancing Downtown’s walkability; and strengthening the
community as an economically vibrant destination.
The Sustainable Places Action Plan consists of an Illustrative Plan, a
Phasing and Implementation Strategy, and a series of Recommended
Land Use Policy and Code Amendments necessary to implement the
Plan.
The Illustrative Plan focuses on the potential for Downtown infill
development, illustrating the opportunity for over 100 new dwelling
units and about 33,000 square feet of ground level commercial
November 22, 2013
space. Several sites are identified within Elgin’s Demonstration Site for
possible early “catalytic” public and private investment that could help
to kick off the community’s vision for the Demonstration Site. These
include:
• Redevelopment of the Lundgren Tracts along East 1st Street
into a mixed-use complex of live-work houses, apartments and
townhouses;
• Infill residential development on the Snowden Tract south of the
rail tracks;
• Commercial infill development on portions of the now, Cityowned Union Pacific Railroad (UPRR) lands west of Avenue B;
• Adaptive reuse of the historic Rivers Building on South Main
Street; and
• Potential redevelopment of the Newt’s Gin site.
The Plan identifies recommended public improvements that
could create enhance the Downtown environment and promote
opportunities for private investment, including:
• The introduction of street trees and sidewalk improvements
along Main Street;
• The improvement of East First Street in conjunction with
redevelopment of the Lundgren Tract;
• The creation of an events green on the UPRR lands between
Avenues B and C providing additional space for major
celebrations like the Hogeye Festival;
• A flexible plaza, south of the events green with a shade structure
that could provide a permanent home for the farmer’s market;
and
• The use of the former Public Works yard north of Depot Street
for a civic building such as for a new city hall or performing arts
center.
T H E S U S TA I N A B L E P L AC E S P R O J E C T
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2. Introduction
Elgin is one of five cities in Central Texas chosen to participate in the
Sustainable Places Project, an ambitious regional planning initiative
aimed at helping communities create the conditions for livable places,
consistent with local goals and values. The Project offers professional
assistance in community outreach, development planning, economic
and market research, and financial planning of catalytic investment
projects.
Using an innovative digital analytic tool in conjunction with a
comprehensive public engagement plan, the Sustainable Places
Project builds on existing plans and policies to develop an
implementable action plan that can help achieve the community’s
aspirations. The Capital Area Texas Sustainability (CATS) Consortium,
a network of regional planning agencies, community development
organizations, and local governments, led by the Capital Area Council
of Governments (CAPCOG), was awarded a Sustainable Communities
Regional Planning Grant by the US Department of Housing and Urban
Development (HUD) in 2010 to support the Sustainable Places Project.
The Partnership for Sustainable Communities is a Federal initiative
formed to actively promote and create comprehensive strategies
for sustainable development through the collaboration of its
partnering Federal agencies, including the Department of Housing
and Urban Development, the Department of Transportation, and
the Environmental Protection Agency. The Partnership developed
six livability principles to guide the development of sustainable
communities. For application to Central Texas, the CATS Consortium
refined these principles as follows:
Housing choices:
All kinds of housing for all kinds of people
Mobility options:
Multiple ways of getting around…
not just by car
Economic prosperity:
Jobs and services for area residents
Healthy communities:
Recreation, health, food and civic
connections
Concentrated and balanced growth:
Pedestrian-friendly mixed-use districts
Environment and natural resources:
Protection of natural areas and resources
What is Sustainability?
For the Sustainable Places
Project, sustainability is
viewed through the lens
of long-term livability and
inclusivity. According to
the US EPA, “Sustainability
creates and maintains
the conditions under
which humans and nature
can exist in productive
harmony, that permit
fulfilling the social,
economic and other
requirements of present
and future generations.”
In order to address these livability principles in a participatory way,
the planning team employed a software package developed by the
University of Texas at Austin and Fregonese and Associates through
the regional planning grant. Based on the Envision Tomorrow
(envisiontomorrow.org) suite, the analytic tool was specifically
calibrated for Central Texas and a series of indicators and models
were developed for local analysis. The planning tools allow residents
November 22, 2013
T H E S U S TA I N A B L E P L AC E S P R O J E C T
5
to “paint” development types on a local map and instantly view the
effect of their land use and development choices on a range of factors
such as population, housing mix, jobs-housing balance and fiscal
performance. Different growth scenarios can be created quickly to
compare impacts. A uniquely calibrated public fiscal impact model
is used to provide an understanding of a city’s costs and revenues
associated with various scenarios.
The City of Elgin applied to participate in the Sustainable Places
Project with the goals of developing its downtown area with a vibrant
mix of public and private uses, promoting a better balance of jobs
and housing, and creating a more balanced transportation network
(Appendix A). The City also requested assistance with updates to its
zoning and subdivision codes to promote a more sustainable and
livable pattern of development. Elgin had a number of objectives for
progress, including the reuse of surplus railroad right-of-way in the
Downtown for public open space, the preservation and enhancement
of local agriculture, and the creation of a more diverse range of
housing options.
Cities participating in the Sustainable Places Project identified
“Activity Center” study areas that could serve as demonstrations
of sustainability planning for other Central Texas cities. The Elgin
Demonstration Site includes the historic downtown and an 85-acre
property approximately two miles to the west, purchased by the City
to promote economic development. (See opposite.)
Downtown Elgin is located approximately 25 miles east of Austin, near
the US 290-SH 95 intersection, making it a well-connected regional
center. Downtown is characterized by a mix of mercantile and
agricultural/industrial buildings, which serve as reminders of its social
and economic history. The former Union Pacific right-of-way, linking
Elgin with Austin, is now owned by Capital Metro, which has identified
the corridor for future commuter rail service terminating in Elgin.
6INTRODUCTION
Elgin has long been an important agricultural hub for Bastrop County
and the larger region. During the first half of the twentieth century,
Elgin was home not only to its famous sausage enterprises, but also
to feed and grain processing, multiple cotton gins, and a thriving
cotton oil mill. The City’s history as an agricultural center is evident
in the Downtown built environment, with a concentration of mill
and warehouse buildings just steps off of Main Street, including
the 3.5-acre Lundgren Cotton Oil Mill tract. The complementary
19th and 20th century mercantile buildings that line Main Street,
Central Avenue, and Depot Avenue also illustrate Elgin’s position as
an historically important regional commercial center. Many of these
storefronts and upper level spaces are now vacant, although there are
signs of resurgence, with several new Downtown businesses opening
in the past 18 months. The City of Elgin has already invested in the
future of Downtown by strategically purchasing tracts of undeveloped
land along the railroad line from Union Pacific with the intent of
improving the pedestrian experience and open space environment
along Central Avenue and around Veterans Park, which is the focal
point and gathering space for various festivals and events throughout
the year.
The 85-acre economic development property is located along the
Capital Metro rail corridor. While the parcel is currently served by
local roads and unimproved driveways, the City’s Thoroughfare Plan
envisions its eventual incorporation into a more comprehensive
network of streets. By purchasing the property, the City originally
hoped that Austin Community College (ACC) would develop the land
for its Elgin campus, but the college chose a site with more direct
access to US 290. The City is now promoting uses that will generate
positive economic benefits to the community, as well as future transit
ridership that could warrant an additional rail stop to the one that is
envisioned for the historic downtown core.
Planning Process and Time Line
3. Planning Process
Following its selection for the Sustainable Places Project in November
2011, the Elgin City Council appointed an independent Stakeholder
Committee of 30 individuals to represent the diverse interests of the
community and to work with the consultant team for the duration of
the two-year planning process. The planning team conducted several
initial meetings with the Committee to discuss existing conditions and
to explore key issues and opportunities,and continued to meet with
the group throughout the process.
The Visioning Workshop: With some of the identified opportunities
and constraints in mind, the citizens of Elgin met for a Visioning
Workshop in September 2012 to describe the kind of place their
community should become for the next generation. The Stakeholder
Committee hosted the workshop, where more than 70 residents were
asked how they would address each of the livability principles, first
by responding to a series of survey questions and then through a
small group mapping exercise, where ideas for “what should happen
where” were recorded with “Post-It” notes placed directly upon a large
aerial map of the Demonstration Site. (See opposite.) The evening’s
questions were duplicated in an online survey that encouraged
anonymous comments. About 24 additional people shared their
thoughts online (Appendix B).
The “Charrette”: The November 2012 charrette allowed people to
translate their visions into more specific development scenarios for
the Demonstration Site. The charrette activity was based on residents’
visions of where specific development types should be located.
Each development type is based on a certain mixture of building
types and uses, which also represent certain numbers of jobs and
households. The participants formed groups and each had a menu
November 22, 2013
1
Summer 2012
Existing
Conditions
and Visioning
Vision Workshop
Sept. 10, 2012
2
3
Fall 2012/ Winter 2013
Spring/ Summer 2013
Plan Development
and Scenarios
Draft Plan
Planning Charrette
November 8, 2012
Public Meetings
Open House
February 19, 2013
Present to
City Council
4
Fall 2013/Winter 2014
Final Plan
Documentation
City Council Review
and Adoption
Stakeholder Committee Meetings
The Sustainable Places Project has been a two-year effort.
of each development type, with its jobs and housing details along
with example images. The participants formed groups and arranged
“chips” that corresponded to the development types on a map of the
Demonstration Site. Each group’s map was digitized in real time using
the analytic software, allowing participants to understand the effect of
their decisions on the future, as measured by various indicators.
The “Open House”: In February 2013, an open house was
conducted to present three scenarios based upon the charrette
results. Two of the scenarios were designed to capture and “bracket”
the range of ideas expressed by the community at the charrette, while
the third was developed as a “baseline” example of “business as usual”,
reflecting current, dominant development trends. In addition, specific
ideas for the enhancement of the UP lands and Main Street were
developed for consideration by the community. Through a survey
conducted at the meeting and subsequently online, more than 55
residents stated preferences and offered further suggestions for the
refinement of the planning concepts (Appendix C).
T H E S U S TA I N A B L E P L AC E S P R O J E C T
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At the outset of the Project, the consultant team, in conjunction with
CAPCOG, conducted a diagnostic assessment of the community,
evaluating existing conditions, regulations and demographic and
economic factors (Appendix D and E). Through the public planning
process and surveys, the community and stakeholders had the
opportunity to tell the planning team what they value in Elgin, what
concerns them, and what desirable growth would look like. Some of
the common themes can be summarized as follows:
• Guide expected growth in ways that preserve Elgin’s unique
character and its agricultural heritage.
• Strengthen Main Street as an economically vibrant destination
with a mix of uses.
• Ensure that young people have opportunities to stay in the
community.
• Make the Downtown more walkable.
The surveys also yielded specific objectives and examples of how the
six livability principles could be addressed in Elgin:
Housing choices: Introduce a greater variety of housing for people of
different incomes.
• Encourage downtown housing to support local businesses.
• Provide more one-story housing for seniors.
• Encourage upper-level housing in downtown buildings.
12
ISSUES, OPPORTUNITIES AND OBJECTIVES
Pocket Neighborhoods/Karen DeLucas
4. Issues, Opportunities, and Objectives
Encourage a range of downtown housing to support local businesses
Mobility options: Make it easier and more convenient to move
around Elgin.
• Improve sidewalks along Main Street.
• Plan for a future commuter rail stop in Downtown and on the
Economic Development site, to be implemented if ridership
levels warrant it.
• Expand the trail system from Downtown to surrounding
neighborhoods.
Economic prosperity: Attract new businesses and employment to
Elgin to increase the City’s tax base.
• Strengthen Downtown as a destination to support local
businesses.
• Attract talented young residents to improve the mix of income
levels.
• Build on Elgin’s agricultural heritage to develop a “food hub”.
Healthy and inclusive communities: Provide recreational
amenities and critical services within easy reach of residents.
• Expand the Farmers Market as a Downtown destination, featuring
local agriculture and providing information about food value and
nutrition.
• Introduce family-oriented recreational facilities, e.g., bowling,
skating and swimming.
• Introduce local medical and health care services.
Concentrated and balanced growth: Shape future growth to
create a dynamic future that maintains Elgin’s character and quality of
life.
• Encourage infill development that is compatible with the scale,
character and historic identity of the Downtown.
Preservation of environment and natural resources: Protect
Elgin’s agricultural lands. Farmers are great stewards.
• Develop food infrastructure that can support the viability of local
agriculture, and establish Downtown as a “food hub”.
The survey results indicate that the majority of participants are
concerned with the continued viability of Downtown Elgin as the
community’s principal gathering place and economic center, and as
a place that gives the city its unique identity. Agriculture and food
production is also an important community value, contributing not
only to Elgin’s economy, but also to its character and image.
Develop food infrastructure that can support the viability of local agriculture,
and establish Downtown as a “food hub”.
Strengthen Downtown as a destination.
November 22, 2013
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5. Planning Scenarios
YOUR MAPS FROM THE CHARRETTE
Participants in the November charrette produced the four complete
growth scenarios of Elgin’s future shown at the right. All four scenarios
were digitized and analyzed with the analytic software, displaying in
real time how each land use scenario could affect the community’s tax
revenue, population, jobs-housing balance, and the mix of housing
types.
Table 1 - “A Vision of Elgin”
While the four groups at the charrette produced different scenarios,
there were common themes among all of them:
Table 2 - “Live-Work-Play”
Table 2: “Live-Work-Play”
• Open space on UP Lands
ConvertUPLandstomajoropenspace
• •Medical
services with a mix
• MedicalservicesontheTODsitewithamixof
of commercial,
civic, and
commercial,civic,andresidential
residential
on TOD site
• AtheaterinDowntown
• Theater for Downtown
• Downtown Elgin should be strengthened as the commercial,
cultural and civic heart of the community, with infill
development that brings new vitality.
• The UP lands should be used to create open space and perhaps
other uses that make Elgin a more attractive destination for
residents and visitors.
• The Economic Development site should have a mix of residential
and employment uses, with a higher concentration of activity
around a future rail station.
With the knowledge and perspective gained from the Visioning
Workshop, the Charrette, and a variety of preference surveys, the
four maps were condensed into three planning scenarios. The
first scenario (opposite page), illustrates past development trends,
which include a dominant pattern of large-lot, single-family homes
in standard suburban subdivision layouts and some low-density,
commercial development on vacant Downtown sites.
Scenario B (New Neighborhoods and a Civic Center), shown on page
14, explored the idea of several clustered neighborhoods within
14
PLANNING SCENARIOS
Table 1: “A Vision of Elgin”
• Trail connections between
• ConvertUPLandsintomajoropenspace
parks,
residences, and
• Connectparks,residences,andbusinesseswith
businesses
trails
A“stationsquare”surroundedbyshopsand
• •“Station
square” at the
restaurantsontheTODsite
TOD
site
Table 3 - “Downtown Infill”
Table 3: “Downtown Infill”
• Compact Neighborhood
• SeniorhousingonDowntowninfillsites
on
Lundgren Tract
• ADowntownYMCAonvacantsitesouthof • Permanent
CentralAvenue farmers’
• CommercialMainStreetusesandcommuter
market
on UP Tract
parkingonTODsite
• Downtown
YMCA
• Apermanentfarmers’marketontheUPTract
Table 4 - “Downtown First”
Table 4: “Downtown First”
• •Entertainment
Downtown
MoviesandentertainmentDowntown
• •Infi
ll and open space on UP Mixofinfillbuildingsandopenspaceonthe
Tract
UPTract
Townhouses,cottages,andapartmentson • •Single-family
Downtowninfillsites
neighborhood
on TOD site
• Single-familyneighborhoodonTODsite
Elgin Open House
February 11, 2013
The four charrette land use scenarios created by participants in the scenario
planning charrette.
elgin.sustainableplacesproject.com
SCENARIO INDICATORS
Compare each scenario’s performance over the next couple
of decades based on its impact on community, the economy,
transportation and the environment.
INDICATOR
Population Growth
A
MEANING
B
C
Trends
Continue
Neighborhoods
and Civic Center
Resurgent Old
Town
1,840
1,322
1,871
Future vitality depends a lot
on its ability to grow.
Each scenario performs
differently in how it attracts
newcomers to the city.
New Population
14%
New Housing Mix
% of all new construction
Each scenario emphasizes
a different mix of new kinds
of housing.
9%
8%
51%
14%
43%
7%
Total Dwelling Units (du): 650
Standard Single Family
(A: 292du B: 2du C: 4du)
Cottage Home
(A: 47du B: 71du C: 261du)
Jobs-Housing
Balance
22%
33%
6%
14%
Jobs-housing balance refers to
the approximate distribution of
employment opportunities and
workforce population across
the area. It is measured in terms
of the proportion of jobs per
household.
34%
Total Dwelling Units (du): 777
23%
22%
Total Dwelling Units (du): 792
Small Lot Single Family
Apartment
Townhome / Duplex
Mixed Use Apartment
(A: 93du B: 1du C: 1du)
(A: 37du B: 107du C: 172du)
0.8
3.0
(A: 54du B: 262du C:182du)
(A: 91du B: 334du C: 171du)
1.8
Jobs-housing balance ratio
Fiscal Impact
Revenue/Cost Ratio
Each scenario would stimulate
a different amount of new
revenue and costs in the city
based on new growth.
1.04
Fiscal Impact
Net Revenue
(Revenues minus Costs)
1.05
1.00
$303,000
$16,000
Fiscal impact ratio
Net income is calculated by
taking the total revenue then
removing the total cost of new
growth.
$125,000
Summary
of indicator
results for the three development scenarios presented
Elgin Open
House
at
the11,February
Open House
February
2013
elgin.sustainableplacesproject.com
18
PLANNING SCENARIOS
Additionally, three design concepts for the improvement of Main
Street were presented. The current street is approximately 70
feet from curb to curb. While diagonal parking provides a level of
convenience for visitors by car, the width of the street makes crossing
difficult for pedestrians. The first alternative proposed the addition of
sidewalk “bulb-outs” at intersections and at intervals along the street
to reduce the crossing distance and to provide space for landscaping
and street trees. The second option proposed the introduction of a
tree-lined median down the center of the street, and a third provided
for widened sidewalks by replacing one side of diagonal parking with
parallel parking.
Community Preferences: The community preference survey
conducted during and after the Open House (Appendix C) indicated
a preference for Scenario B, because of its positive fiscal performance
relative to the other two options. Participants were enthusiastic about
concepts that promoted jobs, activities and mixed-use residential in
the Downtown. People strongly favored higher density residential
on the Lundgren Tract with some commercial uses concentrated
on the ground floor. More people felt that the 85-acre Economic
Development site should be targeted as an employment center
than as a residential neighborhood. Respondents favored reuse of
the Union Pacific lands for open space and/or civic uses that could
enhance the attractiveness of the Downtown. When asked about
Main Street, participants clearly favored improved landscaping and
pedestrian enhancements, but were divided about the actual design
approach.
In addition to the scenarios presented, the planning team received
positive feedback on the idea of an integrated and coordinated plan
for local food and agriculture systems. This included the idea of
making Elgin into a “Food Hub”, by concentrating food production,
processing, and sales activities in the city and leveraging its historic
connection to agriculture.
Indicators of Opportunity: The City of Elgin strives to increase
access to opportunity and further fair housing choices. The Central
Texas Opportunity Maps, a project funded in part by the Sustainable
Places Project, provides a backdrop of the social and economic
trends affecting low income populations within five miles of Elgin.
The demographic and economic data was used to facilitate public
discussions early in the planning process.
According to the Opportunity Maps, the area is characterized by
moderate median household values (between $130,000 and $180,000)
and low poverty and crime rates relative to the rest of Central Texas. It
has a low median income but low unemployment. However, average
commutes are relatively long (on average 35 minutes) and weigh
down the economic and mobility portion of the overall opportunity
index. The change in opportunity in the Elgin area from 2000 to 2010
has improved in some areas but not in others. While segregation is
relatively low and the overall poverty rate decreased over this period,
residential occupancy rates decreased in portions of the city near
South Main Street and Highway 290 and median household income
decreased in some areas. However, it is important to note that 2000
was a period of relative prosperity for most municipalities compared
to 2010, all else equal. Furthermore, these changes were not uniformly
distributed throughout the city and surrounding areas.
The scenario indicators suggest that the preferred public vision of
a connected, inclusive activity center will improve opportunity for
existing and future residents by offering a diverse mix of housing
and jobs for different incomes and by providing walkable options
for shopping, jobs, and public services that reduce transportation
expenses. Furthermore, development patterns of this type should
decrease vacancies, yielding higher property tax revenues for the city.
Main Street Improvement Concepts
November 22, 2013
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Looking at the indicators for each scenario, which one
performs best given your vision of Elgin?
Which of the following options would you prefer to see for
Main Street?
Something else entirely (please provide
details in “Comments”)
8.2%
Scenario A
16.4%
Scenario C
Keep it as it is ( Concept A)
Some combination of these (please
provide details in “Comments)
27.3%
16.3%
12.2%
Add trees and “bulb-outs”
(Concept B)
Widen the sidewalks (Concept D)
14.3%
Scenario B
Add a tree-lined median (Concept C)
56.4%
26.5%
Which of the following concepts would you prefer to see
for the Lundgren Tract if and when the mill closes?
Something else entirely
(please provide details in
“Comments”)
15.4%
22.5%
Which of the following concepts would you prefer to see for
the Union Pacific property recently acquired by the city?
Something else entirely (please
provide details in “Comments)
Maintaining the site and
finding a new user
14.3%
7.7%
A compact neighborhood
with a mix of housing types
and possibly some adaptive
re-use of existing buildings
(as shown in Scenario B)
Some combination of these
(please provide details in
“Comments”)
9.6%
A new City Hall and other
civic uses and open space (as
shown in Scenario B)
Some combination of these
(please provide details in “
Comments)
38.8%
16.3%
19.2%
A mixed use (residential and commercial)
district transitioning into Downtown (as
shown in Scenario C)
48.1%
A mixed use compact neighborhood
(as shown in Scenario C)
30.6%
Surveys conducted at the Open House and online showed a preference for the land use plan
in Scenario B and mixed-use development on the Lundgren Tract.
November 22, 2013
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21
6. Action Plan
The Action Plan for Elgin is intended to achieve the community’s
vision for the Demonstration Site. The Plan is comprised of three
elements:
• The Illustrative Plan that describes the full build-out of
the Demonstration Site, the recommended mix of land uses,
circulation and infrastructure improvements, and public
open spaces. An evaluation of the recommended plan and
development program using the analytic software provides a
projection of the anticipated performance of the plan in relation
to several indicators of importance to the community (e.g., fiscal,
jobs-housing mix, population, etc.).
• A Phasing and Implementation Strategy that provides a
recommended program of early public improvements that can
provide the setting for an initial “catalyst” project by the private
sector, both of which are intended to kick off the community’s
vision for the Demonstration Site. An implementation strategy
describing methods for financing the public improvements is
also provided.
• Recommended Land Use Policy and Code Amendments
necessary to implement the vision of the Demonstration Site and
to achieve the six livability principles of the Sustainable Places
Project. These include recommended amendments to the City’s
Comprehensive Plan, its zoning code, subdivision ordinance and
other policy documents related to land use and development.
November 22, 2013
6.1 The Illustrative Plan
On the basis of extensive public input over the past year, the
Sustainable Places Project has developed a recommended plan
intended to achieve the community’s vision for the Demonstration
Site. The plan provides for a diversity of housing opportunities
and commercial development on infill sites within the downtown,
expanded open space and civic uses on the UP lands including
a permanent location for the farmers market, and enhanced
streetscapes along Main Street and around Veterans Park.
Infill Development on Key Downtown Sites: Within walking
distance of Main Street, there are several significant sites that are either
vacant or that are evolving out of their current use. For instance, the
3.5-acre Lundgren tract immediately east of the rail tracks along First
Street is the site of a cotton mill that, according to the owner, may not
continue to be a viable business venture in the future. The 0.9-acre
Snowden tract along Main Street lies largely vacant and there are
several other smaller sites within the Downtown that could support
infill residential or mixed-use redevelopment. The Plan identifies
these sites for a mixture of housing types including apartments,
townhouses, small-lot cottages and live-work shophouses. In total,
the Plan projects the opportunity for approximately 111 new dwelling
units downtown and 33,000 square feet of ground level commercial
space oriented to Main Street and Central Avenue.
A Civic Center on the Former UP Lands: Consistent with the goals
of the community and City, the approximately 10 acres of former UP
right-of-way, purchased by the City in 2011, is targeted for a mixture of
public-oriented uses including: the expansion of open space west of
Veterans Park between Avenues B and C; the creation of an additional
flexible events space south of the tracks that can serve as a permanent
home for the farmers market; and a site for a new civic building, such
as a City Hall and/or a performing arts venue on the former Public
T H E S U S TA I N A B L E P L AC E S P R O J E C T
23
Works yard along Depot Street. West of Avenue B two small remnants
of the UP right-of-way are also suggested for commercial uses (e.g.,
offices, retail, restaurant) that can help to activate and define the
public open spaces.
A Community Food Hub: Elgin’s history as an agricultural center
and its strategic location in the Austin metropolitan area create a
context ripe for the development of a “food hub”. The idea is to
connect the many small and medium sized farmers and producers
in the area to larger markets through aggregation and coordinated
processing and directly to consumers through retail and value-added
services. A 2012 USDA SARE Sustainable Communities Innovations
Grant report suggested the creation of a food hub in Elgin, but did
not fully develop the recommendation. Elgin has the potential to
achieve many of the goals of place-based food hubs. There is a critical
combination in Elgin of many feasible sites for food infrastructure and
a culture of small to medium size farmers who have demonstrated
interest in cooperative business practices for efficiency and economic
development.
in a comprehensive approach to local food and economic
development in Elgin, adding a face-to-face retail component for
consumers and an educational window into the complexity of
food systems. Additionally, some food hubs, like “21 Acres”, outside
Seattle (21acres.org), and one in the city of Everett, WA include
fully mixed use programs with housing, retail and office uses that
complement the themes of healthy food and local placemaking.
Similarly, in Washington State, the Port of Columbia has developed
“Blue Mountain Station”, which is marketed as “the world’s first
destination eco-food processing park dedicated to the recruitment
and marketing of artisan food processors, primarily in the
natural and organic sectors”. This public initiative in rural Eastern
Washington is soliciting private investment in a property with the
intention of creating a regional economic development driver
in the food sector through the colocation of complementary
business activities.
One potential site for centralized infrastructure related to coordinated
food enterprises could be the 6.5 acre Newt’s Gin Event Center, which
has recently been put on the market and which could support a range
of activities, including growing, value added services, processing,
education, and even distribution. A facility like this one, located
Downtown but with connections to surrounding farm areas, could
be an important link and access point in a robust agricultural supply
chain.
The idea and organizational structure of a Food Hub can go beyond
a single parcel. There are many vacant lots within close proximity to
Downtown (many of which were mapped through the SARE grant
process) which could be utilized for small-scale local food production.
The Downtown Farmers’ Market could also be a key component
November 22, 2013
T H E S U S TA I N A B L E P L AC E S P R O J E C T
25
Food Hubs
With a well-established and historic connection to agriculture
and a strategic location at the edge of a major and growing
metropolitan area, Elgin is perfectly situated to become
an important node in the regional food system. With a
coordinated effort and targeted management, Elgin could
experience economic and community development benefits
related to an industry of growing importance in Central Texas
for residents and visitors alike.
What is a food hub?
The Local Food Hub in Charlottesville, VA operates a local food warehouse and
offers distribution services with a refrigerated delivery truck and van fleet.
While there are many definitions of food hub and their scope is
regularly evolving and changing, the most appropriate for Elgin
probably comes from the University of Washington:
“A food hub serves as a coordinating intermediary between
regional producers and suppliers and customers, including
institutions, food service firms, retail outlets, and end
consumers. Food hubs embrace a spectrum of functions,
purposes, organizational structures, and types, each of which
can be tailored to achieve specific community-established
objectives. Services provided by a food hub may include
and are not limited to aggregation, warehousing, shared
processing, coordinated distribution, wholesale and retail
sales, and food waste management. Food hubs contribute
to strengthening local and regional food systems as well as
to broader community goals of sustainability and health.”
(Horst et al. 2011)
26
ACTION PLAN
A public market could be one feature of a successful food hub, catering to
individual consumers.
Key players in the development of food hubs as viable
economic and community development instruments,
like the US Department of Agriculture and the authors of
“Agricultural Urbanism” de la Salle and Holland, also include
the idea that a centrally located facility and a comprehensive
land use and design strategy could be the focus of such a
coordinated effort.
Some Key Features of a successful Food Hub could include:
• Aggregation and distribution of wholesale products
• Active coordination of activities along the food supply
chain
• Provision of permanent facilities for storage, packaging,
processing, and sale
• Value-added food processing facility
• Diversity of food and beverage retail and wholesale
• Institutions and educational opportunities
• Diverse Programming
Diversity in Structure
Successful food hubs can take a wide variety of forms serve
many purposes. Among 168 food hubs studied by the USDA
for a 2012 report:
Organization
Clientele
• 67 private companies
• 54 nonprofit
organizations
• 36 cooperatives
• 8 publicly held
companies
• 3 informal arrangements
• 70 focused on sales to
businesses or institutions.
• 60 focused on direct
sales to individual
consumers.
• 38 did both.
(adapted from USDA and de la Salle)
Many studies, including a 2012 report by the Western Rural
Development Center, are clear about the economic benefits
to rural economies that well-developed food hubs can
create. Many food systems are designed to only operate
when economies of scale are great enough for wholesale
production and sales. Food hubs work to aggregate the
resources of many small and medium sized producers and
related enterprises to help them gain market entry and
efficiency. With more than 50% of Bastrop County farmers
designated as small or medium sized, the potential economic
and social impact of an Elgin food hub is significant.
November 22, 2013
21 Acres, in Woodinville, WA, uses a green building that is open to the public
to house its school, restaurant, commercial kitchen, and value-added
processing facilities.
T H E S U S TA I N A B L E P L AC E S P R O J E C T
27
Maintaining Flexibility for the Economic Development Site:
The City’s purchase of this 85-acre property west of the Downtown
was a strategic one, intended to promote economic development
opportunities that could create jobs and enhance Elgin’s fiscal
health. With ACC’s decision to locate on US 290, rather than on this
tract, and because the site is yet to be served by infrastructure, it
is recommended that options for its development remain flexible,
allowing the City to be responsive to future opportunities. However,
it is recommended that any use of the site be programmed and
designed to maximize opportunities for transit ridership through the
concentration of density within walking distance of the rail corridor,
and through introducing of a mix of uses as much as is practicable.
Infrastructure: Adequate utilities should be readily available for
the Demonstration Site, especially the Downtown areas likely to
be developed in the early phases. The City has a long-term source
of water in the Carrizo-Wilcox and plenty of treatment capacity to
accommodate development around the Catalyst Project. City staff
is confident in the City’s ability to meet waste water needs as well,
though some localized, older clay lines remain in the historic sections
of town and will need to be replaced as streets are repaired and/or
new projects develop future service to the economic development
site west of town should not be a problem, since the City has
recently completed expansion to a lift station to serve the area; local
lines will need to be extended throughout the site. The economic
development site will get water through Aqua Texas, rather than
directly from the City, after changes in a disputed service boundary.
Aqua Texas could contract with the City for service, but also reports
that it has capacity to serve the area itself. Similarly, the economic
development site receives electric service from Bluebonnet Electric,
while TXU serves most of Elgin. Most redevelopment and related
projects envisioned through the Sustainable Places Project should be
able to draw power from TXU without complication.
November 22, 2013
Indicator Analysis: The community identified several areas of
concern, (e.g., fiscal performance, jobs/housing balance, etc.) that
were evaluated with the Analytic Tool. Results can be summarized as
follows (full reports see Appendix F).
• Population in the project area would grow by approximately
1,005 people as compared to the trend scenario (current
development practices) which is projected to result in 1,459 new
residents. The difference is due to the greater emphasis on jobs
in the preferred scenario.
• The mix of housing types for the preferred scenario include
multi-family (65%, 410 units), townhomes (26%, 163 units), small
lot single family (5%, 34 units), and conventional lot single family
(3%, 19 units). The trend scenario, is dominated by single family
housing.
• The varied housing also offers a broader range of housing cost
options, with the average home purchase price being reduced
by almost $40,000 dollars and the average rental costs by $100
dollars per month in the preferred scenario.
• The employment mix in the preferred scenario includes a total of
1,276 jobs with 841 (66%) office jobs, 277 (22%) civic, 151 (12%)
retail, and 8 (1%) industrial, compared to 112 total jobs in the
trend scenario
• The Jobs Housing Balance (number of jobs per household)
indicates 2 jobs for every household in the project area, as
compared to only one job per every five households in the trend
scenario.
• On water usage, energy usage, and environmental services, the
preferred scenario outperforms the trend scenario.
• The preferred scenario shows a positive “Fiscal Impact” to the
local tax base whereas the trend scenario is a drain on the local
tax base.
T H E S U S TA I N A B L E P L AC E S P R O J E C T
29
SUSTAINABLE PLACES PROJECT
CITY OF ELGIN
CATALYST PROJECTS
Draft July 29, 2013
PARCEL
COMMERCIAL
RESIDENTIAL DU
SF
ACRES
DENSITY FAR
DENSITY DU/AC
HEIGHT (FLS)
OFF-STREET
PARKING
SPACES
60
36
16
6
118
I. LUNDGREN TRACT
L1
L2
L3
L4
SUBTOTAL
1.19
1.43
0.67
0.23
3.52
4,000
4,800
4,800
1,800
15,400
40
18
8
3
69
0.66
0.51
0.58
0.63
34
13
12
13
3
3
3
3
II. SNOWDEN TRACT
S1
SUBTOTAL
1.56
1.56
2,000
2,000
42
42
0.65
36
2
96
96
III. UP TRACTS
UP1
UP2
SUBTOTAL
0.40
0.48
0.88
8,000
8,000
16,000
0
0
0
0.46
0.38
2
2
32
32
64
5.96
33,000
111
TOTAL
278
Illustrative Land Use Concept Development Program
6.2 Phasing and Implementation Strategy
It is recognized that the full build-out of this community vision could
take many years to be fully realized, and will require coordinated
public and private sector investment. The development program is
scaled to appropriately reflect the ultimate capacity of the community
to absorb new residents and economic activity. In terms of the
pace of development, much depends on both external factors, such
as interest rates, the timing of new transportation infrastructure
such as the toll lanes on Highway 290, the local business cycle, and
the capacity of the public sector to facilitate adequate utility and
transportation infrastructure to accommodate the projected growth.
A Series of Catalyst Projects: A key goal of the Sustainable Places
Project is to provide each community with feasible plans for projects
that can act as catalysts for the achievement of the community’s
vision of the Demonstration Site. Through strategic public and private
November 22, 2013
investment, these projects could set the stage for future development
in the area, acting as a “springboard” for subsequent phases. For Elgin,
five key sites are identified as potential “Catalyst Projects” that could
be developed in the near to mid-term and in so doing help to “kickoff” the community’s vision for Downtown. These projects illustrate
a variety of opportunities including residential and commercial infill
development as well as agricultural food processing, distribution
and retailing, each with the assumption of the full and willing
participation of private property owners. More specifically:
• The Lundgren Tract east of Main Street is made up of four
sites on either side of East 1st Street. The property is envisioned
as a mixed-use district with rowhouses, live-work shophouses
and apartments with ground level retail uses facing East 1st
Street. In total, it is estimated that the 3.5 acres of land could
accommodate approximately 69 dwelling units and 15,000
square feet of commercial space. 118 off-street parking spaces
could be located in the interior of the block.
T H E S U S TA I N A B L E P L AC E S P R O J E C T
31
The 3.5 acres Lundgren Tract is within steps of Main Street shops.
• The 0.96-acre Snowden Tract south of the rail tracks along
Main Street is envisioned for mixed-use residential with 7,000
square feet of retail space along Main Street, and 31 apartments
above. It is assumed that the existing storage facility at the rear
of the property would be maintained at least for the immediate
future, and that a portion of the rail right-of-way controlled by
Capital Metro could be made available for off-street parking.
• The 0.3-acre Rivers property at the intersection of S. Main
and W. Austin streets includes an historic two-story mercantile
building constructed in 1906. The property owner wishes to
rehabilitate the building for a mix of commercial and residential
uses. Consistent with the proposed Downtown Overlay Zoning,
this property could include 1,700 square feet of ground level
commercial space and up to five units of residential above and
behind the commercial space. The southern half of the block
could be utilized for off-street parking. This project could be a
good first example of redevelopment under the newly proposed
Downtown Mixed Use Overlay District
32
ACTION PLAN
The 0.9 acres of UP Lands are envisioned for civic uses and new open spaces.
• The 0.9 acres of UP Lands on two tracts on either side of the
rail tracks between Avenues A and B are proposed for two 8,000
square foot commercial buildings. These two-story structures
oriented to North Avenue B could include office and ground level
retail space. The sites could accommodate a total of 64 off-street
parking spaces.
• The 6.5-acre Newt’s Gin site, located between Central Avenue
and 2nd Street, currently functions as a special events venue, but
could provide a potential site for centralized infrastructure related
to coordinated food enterprises. There is an existing commercial
kitchen, indoor space that could be used for shared offices or
classrooms, and room to expand. The site could also offer up
to 2 acres of growing area for research, support for value-added
services, and for visitor demonstrations. There is also ample
space for loading and distribution services, with good access
to Downtown Elgin, ACC Elgin (whose Sustainable Agricultural
Entrepreneurship Program could play a key role), and highway
connections to regional markets. This concept warrants further
investigation by the City’s Economic Development department.
6’
17’
20’
17’
6’
ADA
access as
required
45˚ Parking
Roadway
45˚ Parking
ADA
access as
required
70’
10’
Cafe
0
5
10
DRAFT
Elgin: Main Street
Sustainable Places Project
• Future site for City Hall or Civic Building: The City’s recently
vacated Public Works yard is recommended as a site for a future
City Hall building or other civic or cultural building that can help
to define and activate the proposed open spaces, and helps to
reinvigorate this historic part of Downtown Elgin.
Prepared by McCann Adams Studio
May 7, 2013
• Drainage improvements are proposed Downtown, including
a new 48-inch line and a regional detention pond in the railroad
right-of-way. The cost is estimated at approximately $385,000.
• Alley Improvements: Elgin is fortunate to have a pattern of
mid-block alleys that serve Downtown buildings, but disuse has
left them unimproved and difficult to access. In order to support
rehabilitation, intensification, and infill along Main Street, priority
should be given to paving and lighting improvements.
Financing and Implementation Strategy: The cost of these
public improvements associated with the phased program described
above is estimated at approximately $4.0 million, (Appendix G).
34
ACTION PLAN
7’
8’
20’
8’
7’
5’
10’
Parking
Roadway
Parking
Rain
Garden
Sidewalk
Rain
Garden
80’
R.O.W.
R.O.W.
Proposed Main Street Retrofit Cross Section
5’
Rain
Sidewalk Garden
20 ft
Proposed East First Street Cross Section
0
5
10
20 ft
DRAFT
Elgin: East First Street
Sustainable Places Project
Infrastructure development is likely to involve some combination
of both the public and private sector; capital improvement plans,
value-capture strategies and developer incentives will all play a role
in determining the ultimate mix and financing structure. At this point,
the City of Elgin does not appear to have the capacity to fully fund the
cost of public improvements. As a result, the financing strategy will
entail putting programs in place to capture value that is created over
time (to be used for some combination of pay-as-you go projects, as
the basis of debt service at some point, and/or developer incentives/
reimbursement). Appendix H provides illustrative projections of what
a tax-increment financing (TIF) district within the demonstration area
could plausibly generate over the next twenty years. These forecasts
are made based on recent historical growth rates, reflect current tax
rates, and assume full allocation of the increment to the district. Going
forward, Elgin should consider establishing the TIF district, as well as
including elements of the identified public improvements in the City’s
capital improvement plan.
Prepared by McCann Adams Studio
May 7, 2013
6.3 Recommended Land Use Policy and Code Amendments
As part of the Sustainable Places Project, the City of Elgin requested
assistance in reviewing current land use policies and municipal codes
to identify barriers to the achievement of the community’s vision for a
more sustainable and livable community. These include:
•
•
•
•
•
•
The City of Elgin Comprehensive Plan (2009);
The Alternative Transportation and Trails Master Plan (2011);
The Parks, Recreation and Open Space Master Plan (2011);
Economic Development Corporation Initiatives
The City of Elgin Zoning Ordinance;
Subdivision Ordinance
The City of Elgin Comprehensive Plan: Elgin’s Comprehensive
Plan guides the future development of the community. The goals of
the Plan align very closely with those articulated by the community
for the Sustainable Places Project, including: providing residents with
a greater diversity of housing and commercial options, revamping
the development code to promote a more sustainable and friendly
pedestrian environment, encouraging transit-oriented development
to support future passenger rail, preserving Elgin’s strong agricultural
base and promoting compact infill development where infrastructure
already exists.
The Future Land Use Map in the Comprehensive Plan designates
desired future land uses for all properties in the City and the
Demonstration Site. The FLUM is largely consistent with the land
use concepts developed by the Sustainable Places Project. Some
minor refinements are recommended, including: designating
the Lundgren Tract for Mixed Use, rather than exclusively for Light
Industrial uses, and encouraging infill development within Central
November 22, 2013
Elgin neighborhoods with appropriate transitions to single-family
properties. See the proposed Downtown Overlay Zoning District
(below) for specific recommendations.
In addition, to these land use changes, it is recommended that the
objectives compiled in the 2012 SARE Grant Report on Sustainable
Agriculture in Elgin inform the Comprehensive Plan to include more
specific policies for the preservation of local agriculture such as:
• Develop a plan that will promote and coordinate healthy,
local, and where possible, organic food production and food
professions, and include multiple stakeholders currently involved
in food production and job training. The plan should project
demand for locally-farmed food and recommend a centralized
location and distribution of agricultural institutions. It could
also identify the best distribution of existing food networks and
identify gaps that need to be filled.
• In order to promote a local culture of land stewardship through
food production, polices could encourage the leasing or
acquisition of vacant land for fair resale or sublease to individuals
or community-based organizations dedicated to local agriculture
and food production.
• Clearly define Agriculture, Value-Added Agricultural Products
and/or businesses, Community Garden, Food Production,
Farmers’ Market, Sustainable, and Sustainable Development
in proposed policies that support sustainable agriculture and
community development. Integrate these definitions into the
Comprehensive Plan and the Zoning Ordinance for the City of
Elgin and future planning documents.
• Distinguish farm and ranch land from open space and parks.
While farm and ranch land can contain open space and utilize
T H E S U S TA I N A B L E P L AC E S P R O J E C T
35
general land conservation techniques, the mechanisms for
preservation of agricultural land are not exactly the same as
those for open space, and the interchange between agricultural
land and open space detracts from the focus on agricultural land.
• Create a Sustainable Agriculture Working Group for Bastrop
County, to include representatives from the cities of Elgin, Bastrop
and Smithville, Bastrop County, and other stakeholder groups
(to be identified in the next phase of this project) to develop a
county-wide policy plan for the preservation of farm and ranch
land, and value-added agricultural businesses. (Adapted from
Banks, 2012)
The Parks, Recreation and Open Space Master Plan: Veteran’s
Memorial Park is the only existing park in the Demonstration Site. The
Parks, Recreation and Open Space Master Plan should be updated
to reflect the proposed expansion of open spaces around Veteran’s
Memorial Park as described in the Public Improvement Program
above.
The Alternative Transportation and Trails Master Plan: This Plan
guides the development of a non-vehicular network with the goal
of increasing accessibility, connectivity and active recreation options
for Elgin residents and visitors. It is recommended that the plan be
updated to reflect the future possibility of a commuter rail station and
to plan for the expansion of the sidewalk network.
Economic Development Corporation Initiatives: The Elgin
Economic Development Corporation works to ensure successful
business recruitment, expansions and relocations with cash incentives,
property tax assistance and access to state assistance programs
for the Elgin community. The Elgin EDC board is responsible for
administering a half-cent sales tax to fund these efforts, including
façade improvement grants for the Downtown. The public sector
November 22, 2013
and the EDC also have the ability to foster partnerships between the
food production sector and larger institutional and corporate partners,
like schools, universities, and well-established companies. ACC Elgin
Sustainable Agricultural Entrepreneurship Program and Texas A&M
AgriLife Extension, as well as established local farms and producers
(e.g., Coyote Creek Farm, Green Gate Farm, Meyer’s Texas BBQ, and
Moontower Co-op) are potential partners that could assist the EDC in
programming and developing an Elgin food hub.
The City of Elgin Zoning Ordinance: The zoning ordinance for
Elgin is a conventional use-based code. Within the Demonstration Site
there are four zoning districts (C-2 General Commercial, A Multi-Family,
R-2 Single Family/Duplex, and I General Industrial) that legislate land
uses, height, lot size and density etc. (See Appendix D). These singleuse districts in their current application do not reflect clearly the
Comprehensive Plan’s goals for promoting mixed-use development
within the Demonstration Site; they do not allow small-scale artisanal
production (e.g., metal or fabric production, food processing, etc.)
within the Downtown, they limit ground level residential in much of
the area, and lack provisions that would encourage a more diverse
array of housing options.
It is recommended that the City adopt a series of Overlay Districts for
the Demonstration Site, with form-based development standards to
help guide the thoughtful creation of infill development and new
compact and pedestrian-friendly neighborhoods. Four development
districts, each with a set of form-based development standards, are
described in Appendix I. They can be summarized as follows:
Downtown Shopfront District: Promote an active and concentrated
district of shops and restaurants in the historic core of Downtown. This
district governs the first 50 feet of building depth along Main Street
between Central Avenue and 2nd Street, and along Central and Depot
avenues between Main Street and Avenue C. The standards call for
T H E S U S TA I N A B L E P L AC E S P R O J E C T
37
a full mix of urban uses, including small-scale manufacturing and
assembly that can be accommodated in shopfronts. Ground level
residential and automotive/drive-through uses are not permitted
within this district. Buildings are required to be constructed within
five feet of the property line and to include at least 40% of the ground
level façade in transparent storefronts.
Downtown Mixed Use District: Encourage a mix of retail, office
and residential uses that reinforce Downtown as a vibrant district with
an active day and nighttime environment. The remainder of the
Downtown core (generally east of Avenue B) is targeted for a full
range of urban uses, including multi-family residential, office and retail.
Drive-through facilities are permitted on a conditional basis, provided
that they do not disrupt the streetfront pedestrian environment.
Buildings may be up to 50 feet or four floors in height, provided that
any portion of the building above 40 feet is set back by 15 feet.
Neighborhood Transition District: Create an appropriate
transition between the Central Business District and adjacent
residential neighborhoods. Within the remainder of the Downtown
Demonstration Site, this district provides for a range of uses that are
compatible with the adjacent single-family neighborhoods. Drivethrough uses are prohibited. Buildings are limited to three floors in
height.
Planned Development Sites: Allow for compatible infill development
to occur on contiguous sites exceeding three acres in area, providing
sufficient flexibility for creative and innovative solutions. There are several
large properties within the Downtown Demonstration Site (e.g.,
Newt’s Gin) that offer infill opportunities for small-scale commercial,
residential and mixed-use developments. This District provides criteria
for applicants to prepare a Planned Development zoning application,
ensuring pedestrian orientation, compatible transitions, and compact
development.
November 22, 2013
Subdivision Ordinance and Site Development: It is
recommended that the City’s Subdivision Ordinance and some related
site development and construction standards be updated – to come
more closely into conformance with the ideas envisioned in the SPP
process, to clarify language for developers, their representatives,
and the public; and to take advantage of new trends of thought in
planning and engineering research. Elgin mandates wide streets
with wide rights-of-way for new subdivisions, typical of many codes,
but the SPP recommends narrower road sections that are more
consistent with Elgin’s small town character and that can calm traffic
and create a more hospitable environment for pedestrians and
cyclists. Continuous sidewalks should be provided on both sides of
the street, preferably with street trees located along the curb. Onstreet parking should be allowed and encouraged as a way of slowing
traffic in neighborhoods and in creating a buffer to the sidewalk area.
Amendments to minimum block lengths to encourage, or at least
allow, more pedestrian friendly, “walkable” blocks would support that
same theme.
Although Elgin already has environmental protections in place
through its subdivision rules, the team recommends several additional
items to help preserve the valuable natural heritage of the City,
especially in light of the community’s interest in preservation of
agricultural lands and in the creation of a “food hub”. Strengthening
the riparian stream buffers in the code, amending and clarifying
options for conservation development and initiating protections
for landmark trees are recommended. Some or all of these changes
would help ensure the long-term development of the Demonstration
Site as envisioned in the Illustrative Plan, and would help Elgin absorb
future waves of growth without losing its distinctive character.
Appendix J provides a fuller report on the recommendations.
T H E S U S TA I N A B L E P L AC E S P R O J E C T
39
40ACKNOWLEDGMENTS
7. Acknowledgments
STAKEHOLDER COMMITTEE MEMBERS
Marc Holm - Mayor
Keith Joesel - Mayor Pro Tem
Lawrence Deeter - Capital Metro
Ronnie Moore - Bastrop County Engineer
Jodi Duron - EISD Superintendent
Bettye Lofton - Ward 2 Representative
Tonya Elliot - Attorney
Joe Newman - Economic Development
Director
Molly Alexander - Property Owner
Lucy Galbraith - Capital Metro
Jessica Bega - Property Owner
David Glass - EDC + Local Industry
Bryan Bracewell - EDC + Local Industry
Jerry Horton - Down Home Ranch
Gena Carter - Chamber of Commerce
Andy Kim - ACC Environmental Stewardship
Antonio Prete - Planning + Zoning
Commission
Jeff Carter - EDC + Finance
Kerry Lacy - City Manager
Ed Rivers - Elgin Main Street Board
Melissa Cole - Property Owner
Brian Lundgren - Elgin Cotton Oil Mill
Bryan Shaw - TCEQ
Gary Cooke - Planning + Development
Director
Dave Marsh - CARTS
Gary Snowden - Commissioner Precinct 4
Sandy Menley - Realtor
Bruce Wentworth - Friends of Elgin Parks
Ken Daughtry - Former Mayor
Keith Newman - Property Owner
Eileen Niswander - River Valley Farmers Market
Mark Owen - Property Owner
Amy Miller - Community Development
Director
CONSULTANT TEAM
McCann Adams Studio
Jim Adams
Jana McCann
Jared Genova
Michelle Slattery
Logan Saldivar
Eri Suzuki
November 22, 2013
Doucet & Associates
Jeff Barton
Jenn Dermanci
Russell Tomer
Siglo Group
Jonathan Ogren
Matthew Fougerat
TXP
Jon Hockenyos
Jeanette C Rottas
T H E S U S TA I N A B L E P L AC E S P R O J E C T
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