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ALPENIA MICHIGAN OCZM GRANT #NA-80-AA-H-CZ157 SUBTASK Mty of c a --ona lp co s um w I F-Avir e 0; !C:@- A@ A 4,4i AL -A-S ma AL NNW d pi n Ccity of coastal alpena land use and design plan The preparation of this document Was f inanced through a grant provided by the Office of Coastal Zone Management, National Oceanic and Atmospheric Administration, as authorized under r the Coastal Zone Management Act of 1972 and administered by the Michigan Department of Natural Resources Division of Land Resource Programs. September 1982 Prepared for: City of Alpena @14 @77- Planning Commission Prepared by: Ayres, Lewis, Norris & May, Inc. Engineers - Architects - Planners 3983 Research Park Drive Ann Arbor, Michigan 48104 Administered by: -4 TO Division of Land Resource Programs Michigan Dept. of Natural Resources W W Plan Participants City of Alpena Planning Commission Richard Brown, Chairman Peter Skiba Vernie Nethercut Robert Kane James Canfield Paul Sabourin Alan Bakalarski Mayor William D. Gilmet, ex officio Franklin C. McKim, ex officio Alpena City Council William D. Gilmet, Mayor Robert H. Doyle Edward J. Hier Franklin C. McKim James W. Rau The Citizens of the City of Alpena Department of Natural Resources Michael Kessler, Project Representative Coastal Program Unit Northeastern Michigan Council of Government Lewis Steinbrecher Consultants Ayres, Lewis, Norris & May, Inc. Engineers - Architects - Planners 0 3983 Research Park Drive Ann Arbor, Michigan 48104 TABLE OF CONTENTS SECTION PAGE I INTRODUCTION 1-4 Introduction I Purpose I Coastal Area I Planning Process 2 Coast(i I Profile 3 Location 3 Historical Perspective 4 2 INVENTORY AND ANALYSIS OF WATERFRONT 5-16 Study Area Analysis 5 0 Coastal Issues and Concerns 14 3 COASTAL AREA DEVELOPMENT PLAN 17-43 Coastal Area Development Concepts 18 Unified Coastal Concept 18 0 Land Use and Design Plan 20 Implementation 38 Project Costs and Priorities 38 Funding Sources and Mechanisms 41 Summary 43 List of Figures Page Coastal Area 2 Location 3 Access and Limitation 14 Master Plan 21 Michekewis Park 22 Buy View Par 26 Lower River 29 UpperRiver 33 Implementation Program 39-40 0 0 1 0 0 0 1 0 Introduction 0 0 INTRODUCTION Purpose The purpose of the Coastal Land Use and Design Plan is to analyze the coastal area features, develop alternative land use and design plans, and develop a final plan with recommendations for the future use of Alpena's Coastal Areas. This plan has as its main purpose, to fulfill the folllowing goals: To faster and promote public recognition of the Alpena Coastal Area and the value of its resources; To analyze coastal land uses and recommend future uses which will optimize use of the coastal areas; To maintain the economic intergrity of coastal industries and promote new economic development opportunities; To maximize the recreational potential of the Thunder Bay Shoreline and the City's waterfront parks; To continue the improvement of the Central Business District by utilizing the waterfront and encouraging public use of downown areas. . . . ... . . . . . . . . . . . .. . . . . . . . .. r Coastal Area Alpena's coastal area and extends to the n( Cement Plant. The( 1000 feet and includf the bay to the Ninth 2 The City has long maintained a strong relationship with the waterfront. The City's early economy was closely linked to shipping, lumbering, fishing, and ship building. As times have changed, the use of the waterfront has changed. Parks, marinas, and residential complexes have replaced lumber mills, and docks. In the near future, additional lands within the coastal area will also change. Existing waterfront 76 uses such as parking lots, vacant lands, and storage areas are in transition and may not be utilized to their greatest potential. It is the purpose of the Alpena Coastal Land Use an"d Design Plan to recommend land use and design concepts for these and other coastal areas. Planning Process Recommendations included within the Plan are based upon informa- tion gathered from three major phases. The phases include: COASTAL PROFILE 0 Inventory and Analysis of the Waterfront Development of Preliminary Design Concepts Location Formulation of the Final Plan Alpena is located 180 miles north of Detroit and 80 miles southeast 0 The involvement of the community was actively sought during all of Mackinaw City. It lies just north of the forty-fifth parallel or phases of the study. A series of public workshops, questionnaires, halfway between the equator and the north pole. It is the largest and individual interviews was conducted to gain input and community community in Northeastern Michigan and is a regional center for reaction to various aspects of the Plan. Public input was instrumental services, goods, and government functions. The signi ficance in the 0 in arriving at acceptable alternatives leading to a final recommended City's location lies with its relationship with Lake Huron and as plan. a shipping center of raw materials. 3 Historical Perspective In summary, Alpena's coastal history has been built upon a close The Indians were the first to inhabit the shores of Thunder Bay and relationship between industry and the waterfront. More recently, 0 Thunder Bay River. Sheltered fishing within the safe confines of however, rail and truck lines and decentralized industrialization Thunder Bay plus water transportation inland along the Thunder have severed this dependency upon the waterfront. While much Bay River made the area a natural site for early settlement. of Alpena's waterfront is still industrial, commercial, residential and recreational uses are competing for scarce waterfront lands. 0 The French were the first Europeans to frequent the area. From It is likely that pressures on vacant and transitional industrial lands 1669 to 1763, the French laid claim to the Thunder Bay, chartered will be exerted. It is an objective of this Plan to determine the the coastal waters, and trapped furs. Afterwards, the British and best use of the coastal area while maintaining ties with the City's United States Government laid claim to the area, but it wasn't until heritage. 0 1856 that the first permanent white settlers moved to the mouth of the Thunder Bay River. This also marked the start of the lumbering era. 77 0 The early lumbering operation of Alpena relied heavily upon the 0. river to transport logs downstream for cutting. The finished lumber would then be stacked on docks located on the river or bay waiting 8 0. 0 0 0 for shipment. In 1893 the City had eleven large lumber mills and 0 shipped an average of ten tons of fish per day. The high production of lumber and fish caused most waterfront lands near the mouth of the river to be used as docks to ship the ra@i materials. 77 4 After the turn of the century, lumbering declined and industrial- ization of Alpena began. Fletcher Paper Company and Huron Portland Cement manufactured products from locally found timber and stone. More recently Abitibi-Price Corporation added facilities within 0 4 the coastal area for the production of hardboard. Vlow of Alpena - 1865 - Construcangfire bridge. 0 D 0 0 0 0 0 2 Inventory and Analysls 0 of Waterfront 0 I STUDY AREA ANALYSIS Each study area was analyzed in terms of land use and zoning, natural kkM'@, and physical features, and problems and opportunities. Site analyses -v are discussed below: 4. cv@ 0 r b a y F on AM C A michekewle 1) Motorists and tourists along State Street are unable to A) Michekewis - This area is bounded by the southern city limits, view the Thunder Bay. Views are blocked by the Ice Arena, State Street, and the waterfront residential area on the north. water treatment facility, and adjoining commercial uses. It includes Michekewis Park, Starlite Beach, the Alpena Water Treatment Plant, three motels, three restaurants, a party store, 2) Residents have noted that Michekewis and StGrlite Beaches and a barber shop. The dominant use in the area is Michekewis and swimming areas are often poorly maintained and cluttered Park, Starlite Beach, and the adjoining water treatment facility. with debris. The area contains the largest public beach in the City and one of the longest portions of undisturbed shoreline in the City. 3) The south limits of Michekewis Beach offers an attractive The area also contains the City's Ice Arena and speedskating setting for picnicking and beach use. Large willow trees complex. Conclusions regarding the areas problems and oppor- and large open areas make this area an ideal location for tunities are as follows: expanded park use. 5 4) Existing gravel parking areas and gravel entrance roads B) Waterfront Residential - Thirty-two waterfront homes are are haphazard and poorly defined. However, the City is located in this area. The homes are in excellent condition and in the process of upgrading access and parking facilities. are occupied by middle income and upper income groups. The area is an attractive tree-lined neighborhood with new sidewalks 5) Some adjoining commercial establishments may undergo and a recently improved street. Blair Park and Thompson Park transitional phases in the near future. Opportunities will are also located in the area. Thompson Park is one of the more 9 likely be available for public acquisition or private invest-. popular beaches in the City. Conclusions regarding the areas ment and redevelopment. problems and opportunities are as follows: 6) Encroaching strip development is impacting South State 1) State Street residences are IMPGCted by traffic volumes Street. Excessive signs, curb cuts and poor visual images and noise. are commonplace. 2) Thompson Park creates parking problems during peak use periods along neighborhood side streets. 3) The Michigan Department of Natural Resources has desig- noted portions of the area as High Risk Erosion Areas. 0 b y 4) The Federal Insurance Administration has designated por- tions of the area as a Special Flood Hazard Area. C 5) The Blair Street storm sewer 0UtfGI1 pier is in disrepair. 8 waterfront residential The original wood decking has been removed and the struc- ture is an attractive nuisance to juveniles who attempt to walk on the structure. 6 I The existing marina contains 50 boat slips, and marina operators are currently maintaining waiting lists for dock- age. There is G need for an expanded boat harbor. D C, Ir b a y J4 M C bay view 0 C) Bay View - Bay View Park is one of the more intensively used parks within the City and the closest major park to the Central 2) Winter boat storage adjoining Harbor DriveGnd the Central Business District. Present facilities include tennis court, tot- Business District is unattractive. lot, marina, and boat launch. In addition, the Alpena Yacht Club and a marine supply store maintain facilities at the park. 3) The wastewater treatment plant is visually imposing and The Alpena School District owns park property near the west interferes with public access to the waterfront. side of the park and the City operates their sewage treatment plant on the eastern side of the site. Conclusions regarding 4) Existing gravel entrance drives and parking lots are haphazard - ri the areas problems and opportunities are as follows: and poorly defined. 7 5) While the park is in close proximity to the Central Business D) Lower River - The Lower River area includes lands along the District, there is little pedestrian connection between Thunder Bay River from the Federal Armory upstream to the the park and the downtown area. Pedestrian improvements Fletcher Paper Company. It also includes the Riverfront Reserve, and sidewalk landscaping have not been accomplished on the Second Street Bridge area, the Detroit and Mackinac property, Chisholm Street between the park and the Central Business and lands along the Thunder Bay River north of the bridge. District. Specific conclusions regarding the areas problems and oppor- tunities are as follows: 6) The park adjoins isolated residences along State Avenue and Harbor Drive. These residences may become available for public. acquisition and inclusion within Bay View Park. 40 7) The western portion of the park offers an attractive setting for picnicking and waterfront pathways. E 0 b y D lower river 8 1 The Riverfront Reserve Area behind the Federal Armory 3) The City currently owns and Maintains a parking facility 0 is an attractive facility and is often used by downtown for approximately 40 cars. While demands for parking workers, touristsq and fishermen. are high in the downtown area, the City could explore optional uses which would utilize the attractiveness of 2) The Second Street drawbridge is currently inoperable. the waterfront. 0 Wh i le auto trof f ic st i I I uses the br idge, the br idge wi I I not open to permit the passage of large boats. It is esti- 4) The Detroit and Mackinac Railroad currently owns property mated that repairs for this structure would Cost Gpproxi- on the north side of the river. Portions of the land are MGtely $500,000. vacant and other portions are used for warehouses. While 0 the Railroad has expressed an interest in maintaining the current uses, future demands for waterfront property may cause a change in land use and development of new uses. 5) The Alpena Savings Bank owns a one-and-a-half acre site 'A "0 on the river and has expressed an interest in constructing a new office building. 6) Historically the Thunder Bay River has been a site for industrial development. Under new times, however, new opportunities for the riverfront have emerged and include uses such as shops, offices, and residences, which will F9, 7 utilize the attractiveness of the river. 0 9 a E upper river 0 r b a y 4, C SM11 . .... .............. .. E) Upper River - The Upper River area includes lands along the I The banks of the river are heavily used for fishing and Thunder Buy River from Fletcher Paper Company to the Ninth fishing access. In some areas shoreline erosion has occurred Street Bridge. Also included is the Albert Fowler Senior Citizen from over use and disturbance. Complex, the Alpena Boy's Club, and La Marre Park. The follow- a ing conclusions regarding the problems and opportunities of 2) The west bank of the river is proposed for development 10 the area are presented: of the Bi-Path as presented in previous plans. 4) Island Mill has been considered as a river park by neigh- boring residents and by City officials. It should be noted, however, that the island is currently owned by Flethcher Paper Company. 5) Island Mill was the site on early lumber mill. If devel- oped as a park, the island holds the potential for historic markers and the placement of interpretive displays. 3) Senior citizens and other waterfront residents have ex- pressed concerns about unlimited access along the river 6) The City currently owns land occupied by the water tower on Ninth Street. This land has the potential for development as a riverfron park. as proposed in the Bi-Path plans. F) West Industrial - This land includes land occupied by the Abitibi- Price Corporation and residences along Ford Street. Approxi- mately 30 homes are located adjacent to the Abitibi plant. The following conclusions can be made regarding the problems U and opportunities of the area. W "XA b y F west Industrial i'Z MAGOI im" A 2) Storage piles of raw materials, such as coal and wood, and the building structure create a visual impact and can 1) While the Abitibi-Price plant has strengthened the local be seen from most areas in the coastal zone. economy, the close proximity of the plant to residential areas has of fected local populations. The plant is currently 3) Current employment is approximately 385 and this labor seeking a relaxation of water quality and air quality require- force level is expected to remain stable for the next few 12 ments. years. 4) The plant has no further plans for acquisition of residential 1) The plant is relatively isolated from residental areas and properties along Ford Road. most impacts to the coastal area limited to dust and 5) The plant ships finished products via the Detroit and Mack- the visual impacts of building structures. inac Railroad spur paralleling Fletcher Street and via truck 2) Approximately 250 employees are now working at the plant. traffic using Fletcher Street and Ford Road. This is down from a full work force of approximately650 employees. 3) While there are no curent plans for expansion there are concerns that the existing part facilities and shipping channel may have to be expanded to accommodate larger lake freighters 4) The Cemment Plant is the largest facility of its kind in the United States. There exists an opportunity for expanded interpretive facilities for tourists whichpoint out views of the quarry, the cement making process, and the function of various facilities G) East Industrial - This area includes land occupied by the National 5) The area includes privately held property near Norwegian Gypsum Corporation - Huron Portland Cement Plant. Creeek which is cuurrently used for swimming and picnicing. Specific conclusions regarding the areas problems and oppor- The beach is one of the most popular swimming area in tunities are as follows: the City. COASTAL ISSUES AND CONCERNS In summary, the City of Alpena offers a unique opportunity for expanded waterfront access especially in conjunction with commer- Specific conclusions regarding the problems and opportunities of cial use. each study area have been made. Broader issues and concerns impacting the entire coastal area can also be identified and analyzed. The issues and concerns are as follows: '0 Limited Public Access - Only 16% of the entire Thunder Bay shore- line and the Coastal River shoreline is available for public use. Public access is limited largely because of existing industrial and residential uses. However, access is also limited because the Thunder Bay and the Thunder Bay River is screened by public facilities such as the wastewater Grid water treatment plants, the ice arena, and the Armory. ...... L_J L_J WASTEWATER TFIEAfMEN-T' RANT Public access is, of course, needed for recreational activities such \u U zz\\ b \w 10 & as fishing, boating, swimming, and picnicking. Alpena is fortunate MARINA BAY VIEW PARK to have sufficient beaches and picnicking areas. However, Alpena lacks a different type of waterfront access which affords views THOMPSON PARK of the coastal area and utilization of the waterfront for commercial use. Visitors and residents are often unaware of the City's beaches -10 and park areas because they cannot be seen and are poorly marked. BLAIR STREET In addition, commercial uses have not taken advantage of the waterfront. STAR LITE BEACH Few restaurants offer views of the Thunder Bay and Thunder Bay access and limitations River and most offices and shops have oriented facilities away from coastal land use & design plan MICHEKEWIS PARK CITY OF ALPENA, MICHIGAN the waterfront. It has been found in other cities that people like LL to shop, eat, and walk along the waterfront if facilities are provided. 14 Tourism - Statistics offered by the Michigan Travel Bureau suggest Facilities to accommodate tourists and divers will be needed. Charter that Alpena and Alpena County have faired with only limited success boats, dive equipment shops, offices, and information centers would in attracting tourist and convention dollars. This may be partially be required. Questions regarding funding, administration, and locG- explained by a reliance upon IOCGI industry and a desire to save the tion of facilities have not been resolved; however, recommendations coastal resources and beauty for the residents. Yet recent economic regarding future management of this area is included in later sections conditions have shaken the reliance upon IOCGI industry for economic of this plan. growth. New and aggressive tourism compaigns on the state and regional level have evolved. The "Say Yes to Michigan" campaign, City Entrances- Visitors and tourists typically enter the City ViG as well as promotional efforts by the Alpena Chamber of Commerce U.S. 23 or State Avenue. Within this corridor, the visitor's first and the Alpena Tourists Association, have been initiated. impression of the City of Alpena is typically formed. It is impor- tant, therefore, that the City's entrance area should offer favorable While the City's coastal area and existing convention center are views and form a favorable impression. The State Avenue, Mich- tourist drawing cards, the Thunder Bay Under Water Preserve holds ekewis Park area offers opportunities for improvement. Views of 0 the potential for being a major tourist attraction. Act 184, P.A. the coastal area could be developed and landscaping and signage 1980 establishes Great Lakes bottomland preserves that have his- improvements could be implemented within the entrance corridors. torical or recreational value. It creates the Thunder Bay Underwater Preserve which is an area encompassing all of Thunder Bay , as well Bicycle and Pedestrian Circulation- The City of Alpena has already as offshore areas of Alpena County to a depth of approximately taken great strides in implementing plans set forward in the Alpena 150 feet. Over 80 known shipwrecks are known to be in this area, Bi-Poth Plan of 1976. The plan calls for development of a bicycle and it is one of the richest shipwreck areas in all of the Great Lakes. pedestrian pathway along Thunder Bay and the Thunder Bay River. The pathway will eventually run from Michekewis Park to and beyond With this unique resource, the Thunder Bay area has the potential the Ninth Street Bridge. Besides providing added recreation activities, of becoming an attraction for divers and tourists. A similar under- the pathway will also physically link the City's coastal parks and water park in Tobermory, Canada, attrGCtS over 15,000 visitors promote the concept of a continuous linear park Glong Gil of the a year and over 5,000 divers. It is estimated that expenditures from City's coastal area. divers alone amount to nearly a million dollars for the local economy each year. 15 Laws with Direct Applicability to Activities in Local State and Federal Laws Pertinent to the Coastal Zone - The the City of Alpermts Coastal Zone City of Alpena adopted local zoning regulations which controls development within the coastal area. Greenbelt zoning along coastal Low Type of Jurisdiction shorelines and high risk erosion setbacks have not, however, been Act 245, P.A. 1970, as amended Local zoning or MDNR permit process adopted. Shorelands Protection and regulates new construction in designated Management Act environmental, high risk erosion, and high risk flood areas. (Note: high risk erosion and environmental areas have been desig- A number of State and Federal statutes govern activities in the nated in Alpena County.) City's coastal area. These statutes are summarized in the accom- Act 247, P.A. 1955, as amended Permit from MDNR required to modify or Great Lakes Submerged Lands Act construct in Great Lakes bottomlonds. ponying figure. Perhaps the most important state statute is Act Marina leases also issued under this Act. 247, P.A. 1955, the Great Lakes Submerged Lands Act. This Act Act 184, P.A. 1980 Provides for designation and protection of Great Lakes Bottomland Preserve Thunder Bay Great Lakes bottomlands; regulates dredging, filling, and construction within the immediate preserve. Recovery, alteration, or de- 3truction of abandoned property in this -shoreline area and will have an influence upon new development area is not permitted' without a joint permit from MDNR and Michigan Deport- proposed in the coastal area. ment of State - History Division. Act 346, P.A. 1972 Permit from MDNR required to dredge, Inland Lakes and Streams Act fill or construct in, inland lakes or streams. Act 347, P.A. 1970 Permit from local enforcement agency Soil Erosion & Sedimentation required if a proposed project would dis- Control Act turb one or more acres of land or move earth within 500 feet of a lake or stream. Act 203, P.A. 1980 Permit from MDNR required to dredge, Wetlands Protection Act fill, construct, or drain any wetland con- tiguous to inland lakes and streams, or the Great Lakes. Section 404 Army Corps of Engineers permit program Dredge and Fill Permits jointly administered with State Acts 346 and 247. Rivers and Harbors Act of 1899, Administered in conjunction with Section Section 10 404 permit program. P.L. 95-217, Clean Water Act Administered by MDNR - Certification Section 401, Water Quality that project is in compliance with State Certification water quality standards. 16 I I I z '!@ 10 p I 0 p 0 10 3 0 Coastal Area . Development'Plan 10 . 10 COASTAL AREA DEVELOPMENT PLAN The Coastal Land use and design Plan is designed to provide direc- tion for the community to follow in the redevelopment of the coastal area so that the economic, social, and recreation values are maintained, The recommended plan consists of three elements: Development Concepts, Land Use-Design Plan, and Implementation Programs. COASTAL AREA DEVELOPMENT CONCEPTS L)nIf led Coustal Concept Upon completion of the coastal area analysis, alternative land use From the public meetings, certain overriding development concepts configurations and alternative site designs were developed. The have emerged. The concepts are broad design and planning guide- alternative plans were presented at a series of public meetings. lines which reflect public interest and promote unifying development Presentations included the consideration of land use options for principles throughout the coastal area. The development concepts each study area and site designs for specific sites within the coastal are based upon input gathered at the public meetings and the detailed area. analysis of coastal resources. Public input was an important component within the overall devel- Private Investment - Wherever possible, private investment which opment of the plan and was especially important during development offers public access and public uses of the waterfront should be of concept plans. Alternative designs and land use configurations promoted. This would include restaurants, offices, shops, and recre- were modified according to public input. At the public meetings, ation uses which utilize the unique resources of the coastal area. questionnaires were distributed which solicited information regarding future development. Taken together, the public comment heard Local Economy - The City's existing industrial and commercial at the meetings and response from the questionnaires guided devel- establishments should be maintained and recognized as vital components opment of the plan. in the City's economy. Economic development options which are compatible with coastal resources should be promoted. Tourism - Tourism should be promoted and recognized as an important facet in the local economy. Development of recreational facilities and cultural features within the coastal area should be encouraged to serve tourism. 18 Central Business District - The economic well being of the central Park Improvement - It was generally agreed upon that the City business district should be maintained. Existing commercial estab- should continue efforts to improve coastal area parks. Clean beaches, lishments should be closely linked to the waterfront and new facil- additional landscaping, improved water quality, and continued recrea- ities should utilize coastal features as (in attraction for new business. tion opportunities are desired. Access - Access to Alpena City's waterfront should be available Park Linkag - It was determined that efforts should continue for for public use. Where possible, the City of Alpena should acquire development of the Bi-PGth. The pathway would not only provide additional waterfront lands and maintain existing waterfront areas additional recreational opportunities, but physically link existing for public use. waterfront parks. The Bi-PGth initiates development of a continuous linear park and green belt along the coastal area. Coastal Awareness and Imag - Finally the coastal area should be promoted among the residents of Alpena as a unique resource. As Land Use - It was generally felt that existing coastal land uses which such, the importance and attraction of the coastal area should be present important benefits to the community should be maintained publicized and where possible, programs and development plans and preserved. New uses such as recreational and com miercial uses can establish a new and vital identity for the area. should be promoted for transitional and vacant lands. 19 0 LAND USE AND DESIGN PLAN 0 The Alpena Land Use and Design Plan shown on the following page, presents the overall design and land use components for the coastal area. The intent of the Plan is to redirect the community focus back to the waterfront through a concentration of activities and 0 improvements within each of the seven study areas. The relationship between study areas is strengthened by physical linkage, unifying coastal elements and the design concepts presented in the previous section. They are also tied together by a unified purpose to revi- talize the coastal area, promote new designs, and promote new land uses. Most proposed land uses are consistent with existing uses. It is 0 proposed, however, that some areas along the river be considered for different uses. It should be noted that the Plan does not intend to dictate land use to private land owners. Rather, the Plan is intended to provide a coordinated guide to the future redevelopment of the coastal area. The land use and design components for each study area will be examined in detail. 0 20 0 p i R we F-I bay view lfflufti-@ building landscape Screening of Wastewater plant asphalt pw%Mg to, 121 ewe ompandedl @hm ( 72 new *Fps JLJ lakefront nevr breakwall Saw sidewalk Wnproveements for South c residential regulate do State m with high risk erosion pleniclift MndWAWft - P1111 SYS, O=ObO setbacks ond flood hazard regulations recreation LOW ime reconwranded landscape INA"Gre from noise end pwkbe continue devalope we of Itl Pell immintsM residential land use michekewis 172 peer pwking spaces landscaping and signags, for city "trance lanthe"o screening of wwkw plant picniclift landscaping and Pathways recreation land uso recoarnamd" A) Michekewis Park 0 Provide landscaping improvements within the park especially near the Water Treatment Plant. Landscaping near the The City has already initiated improvements to this waterfront Plant will help screen objectionable views and provide park. A new 43-space asphalt parking lot has been added. In a more park-like setting. addition, new sidewalks, area lighting, and improvements to 0 Develop landscaped garden park near the northeast portion the Ice Arena entrance area has been accomplished. The City of Michekewis and install City entrance signs welcoming intends to continue improvements to the Park especially to tourists to the City. The area could then showcase the the parking facilities which are now haphazard and poorly defined. City's entrance. New entrance drives and circulation patterns will have autos enter or exit the park from U.S. 23 and circle behind the Ice Arena and exit or enter to Thunder Bay Drive. Proposed improve- ments and management recommendations are as follows: 'j 23 0 Improvements � Improve southwest picnic area by landscaping and proper drainage. Pedestrian pathway could also be added within this area as well as additional grills and picnic tables. Ito 0 Provide 172 additional parking spaces near Ice Arena and near the Water Treatment Plant. � Develop connecting pathways between various facilities, and along beach. 110 QN, 0 0 MICHEKEWIS PARK coastal land use & design plan CITY OF ALPENA, MICHIGAN AY- @Y- 22 V, NZ 77 QP, __C_" io Management Recommendations 0 Permanently close Starlite Beach Road and use roadway for expanded beach area. 0 Acquire additional property within the Michekewis Beach 0 Enforce zoning and development regulations pertaining area if and when possible. Acquisition will allow expanded to signs, setback, parking requirements, etc. views of the waterfront from U.S. 23. 0 Limit parking to the Bingham Street right-of-way and 9 Intensify beach clean-up efforts to provide clean swimming utilize adjoining city-owned land for parks and recreation 23 areas. uses. B) Naterfront-Residential This stable waterfront residential area should be maintained as residential uses. However, certain Management recommendations regarding future development can be made. V Management Recommendations 0 Special flood hazard areas should be recognized in order to limit hazards to life and property. NA 0 High risk erosion setbacks as recommended by MDNR should be adopted. � Continued use of the right-of-way for pedestrian and bicycle use should be promoted in accordance with the 1976 Bi- Path plans. � Where possible, neighboring residents should be buffered from impacts associated with traffic noise and parking along U.S. 23. 41IF 0 Install new wood decking and refurbish the Blair Street 14' Dock so that the pub I ic may use the structure for fishing. Maintain Thompson Park for swimming and picnicking and install restroom facilities for park users. Planting screens between the park and neighboring residents should be main- tGined in order to mitigate impacts to adjoining residents. 24 C) Bay Vi Because of the park's close proximity to the Central Business District, a major improvement effort is proposed. Most proposed improvements are centered around the marina and proposed marina expansion. However, with these harbor improvements attractions for pedes- trians, fishermen and the non-boating public are proposed. Pedestrian 0 pathways, landscaping, flags, and general improvements will make Bay View Park a vibrant and attractive place to walk, view boats, or relax. It is also intended that a more successful harbor area will attract shoppers to the downtown. In order to achieve these design goals, the following improvements and management recommenda- tions ore made: Improvements 9 Improved picnic facilities and landscaping are proposed for the west end of the park. In addition, asphalt pathways could be developed near the water's edge and be linked to the Bi-Path. 0 A small gazebo could be constructed for band concerts when weather permits. The gazebo would also provide 10 an attractive architectural feature. 0 Landscaping and sidewalk improvements are proposed for the south end of Chisholm Street. In addition, the foot of Chisholm Street could be marked with a small nautical 25 plaza containing ship's flags and harbor viewing area. ;67 co Th@ My -RE" � At the north end of the harbor, a historical ship could be 0 Parking is proposed for 121 cars and 17 cars with trailers. docked adjacent to the plaza. The ship could be repre- Parking areas are paved with curb and gutter and adjoining sentative of ships from the early lumbering era and offer landscaping. interpretive displays similar to the "Welcome" in Mackinaw 0 Dense landscape screening in conjunction with an earth City. berm is proposed along the wastewater treatment plant � A multi-purpose building is also proposed near the foot and boat storage areas. of Chisholm Street. The building could provide offices, 0 A new marina area is proposed as suggested in previous restaurant, boat supplies and could display nautical ex- plans. The expanded harbor could accommodate 72 addi- hibits about. the Thunder Bay Underwater Preserve. Charter tional boats. boat information and information concerning the preserve 0 Finally, new breakwalls are proposed to shelter the harbor, could also be obtained at the building. and pathways are proposed on these breakwalls for pedes- trians and fishermen. I !,IJ .............. .................. . ................ ------- ....... o"! V'IM1111 IIIIIIIPI 11TINNIVwx 27 multi-uie building marina Management Recommendations 00 0 Private residents located near the west end of the park should be acquired if and when the property becomes avail- - ab le. 0 The Alpena School property near the west end of the park should be acquired. Additional court sports, ball fields, and football fields, which can be located inland, are not recommended. 0 An expanded marina will require space for additional parking and boat storage. Properties South and east of the treatment plant should be considered for future parking and storage. 0 Land areas now occupied for fuel storage near the northeast end of the park should be considered for future commercial 0 land uses. Additional shops, restaurants, and riverWGII areas would compliment the Central Business District. 0 The Thunder Bay Underwater Preserve should be actively promoted cis the area's Major tourist attraction. Facilities 0 for divers and tourists should be developed at Bay View Park. 0 0 28 7" LLiLLJ LOWER RIVER c -------------------- oastal land use & design plan CITY OF ALPENA, MICHIGAN 29 D) Lower River 0 Sheet piling bulkhead system should be constructed along the northwest side of the river from the Second Street The major design theme for this area includes riverfront improve- Bridge to the Alpena Savings Bank property. ments and uses which will compliment the Central Business District. 0 The Detroit and Mackinac Freight Building is currently Proposed improvements and management recommendations for this used for warehousing. However, the City should consider area are as follows: development of a Farmer's Market. The market would contain year round shops, retail space, and vending space Improvements for produce, flowers, food, etc. The market could also 0 The focal point of the area is a proposed mixed use build- be connected to the Central Business District by G pedes- ing built on the river on the site of the City parking lot. trian pathway along the river. The building will contain offices, shops, restaurants, and residential units. 0 Riverfront walkways are proposed for both sides of the river. The walkways will be consistent with improvements already constructed behind the Federal Armory. 0 A riverfront plaza is also proposed adjacent to the mixed use building. The plaza could have a series of levels or steps upon which people could sit for outdoor concerts or activities. 30 residential & office levels' office level _rptail & office level pedestrian arcade specialty shops,, rooftop restaurant retail level sidewalk cafe plaza thunder bay river 0 fill' M11111111! -.1111 Mixed-Use Building, section/elevation 40 31 Management Recommendations � The Alpena Savings Bank is considering development of 10 (1 new building adjacent to the City parking lot on the river. It is recommended that the building be sited on the river with parking facilities located inland. It is also hoped that provisions for G continuous riverfront pathway 0 will be planned on the bank site. � Future land use for the Detroit and Mackinac site is rec- ommended to be commercial and light industrial uses. � A continuous riverfront pathway for both sides of the river 0 is proposed. The pathway should connect with the Bi-Path. � A greenbelt should be provided along the northeast side of the river. � Repair of the Second Street drawbridge would expand 0 boating opportunities on the upper river. It would GISO permit the delivery of coal by ship and by barge. While the repair of the bridge would benefit Fletcher Paper Co., and the boating public, the benefits to the general public 0 are limited and should be assessed with regard to the over- all costs of bridge repair. 32 410 JAN Z UPPER RIVER I> coastal land use & design plan < CITY OF ALPENA, MICHIGAN E) Upper River 0 A riverfront walkway is proposed along property owned by the Fletcher Paper Company. A pedestrian easement The design concept for this area promotes recreation uses along would be necessary prior to improvements. the waterfront. Pedestrian pathways, foot bridges, and fishing 0 A riverfront park is proposed at the site occupied by the access sites are all proposed. Specific recommendations for improve- City's water tower. The park would include parking for 33 ments and management are as follows: 41 cars, picnicking and riverfront access for fishing. A& (9 0 (D WJ Wd M11 'I dA W pedestrian bridge, Island Mill 0 Development of island Mill is recommended for recreation use. Pathways, and fishing access sites are proposed. In addition, historic markers noting the early history and importance of lumbering in Alpena are recommended. Continued development of the Bi-Path is proposed along Pedestrian footbridges are proposed which will connect the west bank of the river. the island to both sides of the river. 34 AV0 Management Recommendations 0 Island Mill should be purchased by the City and used for recreation uses. Acquisition may be funded in part through the Michigan Land Trust Fund. 0 The land bridge connecting Island Mill with the mainland should be removed or replaced with a bridge or culvert to dissipate stagnate water and permit flushing of the riverbank and channel. boardwalk extension, la marre park 0 A pedestrian easement along the Fletcher Paper Company site should be purchased or leased. 0 Various spots along the riverbank are littered with debris 0 Riverbank areas between Ninth Street and the Alpena Power and should be cleaned. In addition, some areas of riverbank Company Dam should be improved for public fishing. are eroding. Soil erosion.is unsightly and contributes to Efforts should include shoreline stabilization, and construction poor water quality. Efforts should be directed to revegetating 40 35 of pier or boardwalk for fishing access. or fortifying the eroding banks. 0 0 F) -West Industrial 0 This area includes G combination of industrial and residential uses with the dominant land use being the Abitibi-Price Plant. Most land areas (ire occupied Gnd it is unlikely that major land use changes will occur within the near future. Management recommendations '0 are suggested for the area and are as follows: Management Recommendations 0 Landscape screening could be installed adjacent to storage piles and areas having objectionable views. Small earth berms could be used in conjunction with plantings. Special plGntings could be placed near the river where views from Bay View Park and where views from the water are espec- ially noticeable. 0 Where possible, residential properties along Ford Road should be buffered. Landscape screening, fences and earth berms could he used. 40 0 The Plant should continue efforts to improve air quality and water quality. 0 The interpretive aspects of the Plant should be promoted. Signs denoting the hardboard making process and the use of local timber could be placed near the entrance of the Plant. 36 G) East Industrial Management Recommendations 0 Landscape screening could be installed near areas having This area includes land occupied by the National Gypsum Corpora- objectionable views. Earth berms could also be used in tion-Huron Portland Cement Plant. Land uses will likely remain conjunction with the plantings. industrial for many years. While some modifications to the existing 0 Efforts should continue to minimize dust emitted from plant site will likely occur, no major changes are foreseen. Manage- the Plant. In addition, water quality of Thunder Bay should ment recommendations for the area are as follows: also be protected. 0 The interpretive aspects of the Plant should be promoted. Signs could inform visitors of the cement making process, as well as quarry operations. The signs could be placed near the plant entrance and at various points along North Point Road. 0 Beach property near Norwegian Creek is privately-owned and used by the public for swimming and picnicking. The A' 4 area should be policed and maintained in an orderly fashion. Existing industrial zoning should also be maintained because 30' of the proximity to the Huron Portland Cement Plant and because of the sites potential for future industrial develop- ment. 37 IMPLEMENTATION Project Costs mW Priorities The Land Use and Design Plan graphically illustrates improvement The full implementation of the Alpena Land Use and Design Plan proposals for the coastal area. However, the Plan is incomplete is projected over a period of ten years. The chart on the following without an implementation program which will provide the City pages illustrates estimated costs and priorities of specific projects with guidance toward actual construction. The implementation associated with the area design plans. Project priorities are broken program consists of project costs, priorities, funding sources, and down by high (implemented within two years), mediu (2-5 years), responsible agencies and administrative mechanisms. and low (5-10 years). Assignment of priorities is an indication of project importance, as well GS the potential for implementation within a given time frame. Costs are estimated GS total project costs regardless if implemented by public agencies or private organ- izations. High priority implementation is recommended for various low cost landscaping projects, as well as improvements for the south end of Chisholm Street. The high priority projects are intended to pro- duce quickly implemented, highly visible improvements which have relatively low costs. The remainder of the projects are medium and low priority. Pro- jects rated as medium and low priority are still very important to the overall success of the Plan. However, it was felt that the com- munity's limited resources should be devoted toward more visible projects. 38 ALPENA, MICHIGAN COASTAL LAND USE AND DESIGN PLAN IMPLEMENTATION PROGRAM Estimated Implementing Planning Area Project Cost (1982 prices) Authority Priority Michekewis 1) Improve picnic areas, provide pathways and add $ 30,000 City Low landscaping 2) Add 172 parking spaces and entrance drives $110,000 city Medium 3) Landscape City entrance area and install new signs $ l8t000 City High 4) Install landscape screening of water treatment plant $ 10,000 City High Waterfront I ) Repair Blair Street Dock for fishing and public access $ 55,000 city Medium Residential Buy View 1) Improve picnic area, provide pathways, add gazebo $ 45,000 City Low and landscaping 0 2) Improve south end of Chisholm Street sidewalks, $ 40,000 City High landscaping, lighting, street furniture 3) Develop Marina PIGZG with flag poles, landscaping, $ 30,000 City High and paving 0 4) Develop Multi-Purpose Building, including offices, $ --- Private Medium restaurant, shops, etc. 5) Install landscape screening of wastewater treatment $ 18,000 City High plant and bout storage area 0 6) Install 121 paved parking spaces and 17 car/bOGt $ 95tOOO City Low trailer spaces 7) Expand bout harbor (72 new slips) $ --- City Low 40 8) Provide new breakwalls $ --- city Low 39 9) Provide historic ship for public viewing $250,000 Private/City Low Coastal Land Use and Design Plan Implementation Program (continued) Estimated Implementing Planning Area Project Cost (1982 prices) Authority Priority Lower River 1) Install 500 linear feet of breakwall along river $250,000 City Low north of Second Street Bridge 2) Develop riverwalk and plaza with landscaping, $ 95,000 City Low lights and seats 3) Develop mixed use building containing offices, $ --- Private Low shops, restaurant, residences 4) Develop farmer's market and commercial complex $ --- Private Low on northeast side of river 5) Develop northeast river bank pathway and landscape $ 50,000 Private Low greenbelt Upper River 1) Purchase, lease or acquire easements for Island Mill $ --- City High and Fletcher Paper Company river bank property 2) Improve Island Mill with landscaping, historic $ 90,000 City Medium markers, and footbridges 3) Develop river walk Bi-Path and secure easements $ 60,000+ City Low 4) Develop Water Tower Park which will include $ 90,000 City Low parking, picnic areas, and river access Priorities Surnmaryof Projected Costs 0 High = implemented within I to 2 years High Priority Costs $116,000 Oe Medium = implemented within 2 to 5 years Medium Priority Costs $255,000 40 Low = implemented within 5 to 10 years Low Priority Costs $965,000 Funding Sources and Mechanisms Due to the cost of many projects, it is unrealistic to think that 0 Coastal Zone Management Program - Michigan Dept. of the entire Plan can be funded with local governmental funds. It Natural Resources is equally unrealistic to think that some local funds will not have 0 Land and Water Conservation Fund - Michigan Dept. of to be raised. The value of the Plan is that it gives the City a tool Natural Resources to approach local groups, Federal and State agencies for implemen- 0 Michigan Land Trust Fund tation. 0 Community Development Block Grants, Small Cities Pro- gram - U.S. Dept. of Housing and Urban Development While the status of many Federal and State funding programs is Urban Development Action Grants - U.S. Dept. of Housing unclear at this time, it is likely that some funding for local recre- and Urban Development Gtion, public works, and community development will continue. 0 Miscellaneous - In addition to the programs named above, The City, with the help of its consultants and staff, should monitor the Dept. of Natural Resourcesand the U.S. Army Corps the funding situation and be prepared to act when funds become of Engineers operate certain programs designed to meet available. At the current time, a number of funding programs are specific recreational and navigational objectives still in place, although their long-term future is unknown. The following funding programs may continue to have funds available .for the improvement projects proposed by this Plan: 41 The potential availability of grant funds does not eliminate the Volunteer efforts should not be overlooked. Concerned citizens necessity to finance all or portions of projects with local funds. can do a number of worthwhile, low cost improvements within the. It is the rule rather than the exception that Federal grants require coastal area. Possible projects include: the local unit of government to fund a portion of the project. Local funding can be raised through the general fund, revenue sharing, festivals, art fairs, etc., which attract people to the water- general obligation bonds, revenue bonds, special millage, special f ront assessment, and private contributions. 0 promotion, newsletters, and attention concerning the value of coustal areas It is clear, though, that the need for private funding will become 0 low cost, volunteer labor projects such as landscaping, increasingly important in the future. In addition to traditional signage, clean up, etc., from civic groups, -garden clubs, sources of funding, State legislation allows municipalities to estab- etc. lish a variety of mechanisms to promote a public-private partnership 0 'godopt-G-tree" programs and charitable functions for economic imporvement. The Economic Corporation Act, the Commercial Redevelopment Districts Act, and the Downtown DeveloE7 ment Authority Act are particularly applicable to Alpena's coastal area. When and if these various incentive programs are used to promote development, the City should ensure that proposed projects conform to the basic objectives of the Alpena Coastal Land Use and Design Plan. 42 Summary Alpena's Coastal Land Use and Design Plan emphasizes the impor- tance of the City's coastal resources. It attempts to determine the best use and maximum opportunity for coastal lands. The Plan also emphasizes the advantages of continued economic development while expanding recreational uses. Specific site designs and imple- mentation programs are suggested for future development. The Plan is a blueprint for the future improvement of the City's coastal area, yet the impetus for improvement lies with the residents and City officials. Once again, the City of Alpena invites its residents to participate in the revitalization of the coastal area and acknow- ledge the unique resources of the waterfront. v -j"p, -2 MR M W*1 EAR n@, 43 V NOAA COASTAL SERVICES CTR LIBRARY 3 6668 14111952 1