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OFFICE CZ*Y city hanes chHkoot/ port portage Cover, a rl a area, menung specm@ aftenVon haines, alaska .@kl HT 168 B35 C58 1982 Of A letter of transmiftal 10 August 1982 The Honorable Jon D. Halliwill Mayor, CJ -ty of Alaska J Haines, Alaska Sir: We take great pleasure in submitting herewith the City of Haines Port Chilkoot/ Portage Cove AMSA waterfront design study. This report presents our design team's data and findings over the last six months working with you and the community. We are confident that the report presents a realistic future for the Area Meriting Special Attention. Recent actions by the City of Haines authorizing the implementation of specific projects is a clear indication of the City's support and enthusiasm regarding the economic and physical well being of the community. The report is designed to be a guideline for design, a promotional tool for the community as a whole, and as a resource for future project imple- mentation. We trust that we have fulfilled the charge given to us by the City and look forward to seeing the concepts presented in the report becoming reality. We also appreciate and wish to recognize the involvement of the City Council, City Planning Commission, City Staff and the many local residents who partici- pated in our meetings and workshops. Sincerely, Ka sin/Petti Sig Gee & Carson Ro ld J is Kathy &rssow Architect/Urban ann Urban Planner George Gee US Depart@montr of Commerce Economist NOAA Coastal Services Center Library 2234 South Hobson Avenue L Charlestonp SC 29405-2413 a S* n/Pe tti 0 J K pr R41 d 4is Architec /Urbaynann@@@ Prepared For: City of Haines Port Chilkoot/Portage Cove The City of Haines, Alaska Area Meriting Special Attention Mayor Jon D. Halliwill Haines, Alaska City Council Members A Waterfront and Redevelopment Project Roy Clayton Tom Tunnell Gail Wallace John Tompkins Don Krake Arne Olsson Prepared by: Kasprisin/Pettinari Design Architects and Urban acknowledgements Planners. 2031 Eastlake Avenue East . Seattle, Washington 98102 206-328-0900 Principal-in-Charge Ron Kasprisin Supporting Staff Gretchen Andrews Steve Vrabel Cheri Hendricks Gee & Carssow Planning Consultants P.O. Box 7553 Ketchikan,, Alaska 99901 907-225-5092 Kathy Carssow, Project Coordinator George Gee, Economist Special Thanks To: We gratefully acknowledge the flying skills of Leighton A. Bennett but for whose efforts many of the City of Haines, Economic Development Specialist aerial sketches would not have been possible. Paul Wellman State of Alaska Department of Community and Regional Affairs This project was supported, in part, by funds from the David Hanna, Planner IV Office of Coastal Zone Management, National Oceanic Juneau, Alaska and Atmospheric Administration, U.S. Department of Commerce, administered by the Division of Community Local Residents, Property Owners and Planning, Alaska Department of Community and Regional Interested Citizens Affairs. H + Letter of Transmittal Acknowledgments Table of Contents Purpose and Use of This Document iv Introduction 1 Factors Influencing Development 7 Land Use Policy Plan 15 Special Design Districts 21 Design District 1 22 Small Boat Harbor/Mission/Museum Design District 2 34 Tlingit Park/Cemetery/Lookout Park Design District 3 49 Transition Zone Design District 4 52 Lower Fort William H. Seward Design District 5 70 Upper Fort William H. Seward Implementation Strategy 77 Summary of Priorities 78 Overview of Funding Tools 78 pu ose and use 6f this dodument Purpose and Use of This Document The purpose of this document is to identify, describe, and prioritize specific waterfront public access and public recreation projects capable of being built on public lands. These projects will serve as impetus and direction for private developers and owners. , In addition, guidelines and design suggestions are presented within the document for private development within the Fort William H. Seward complex. While more dependent on market conditions and local and regional economics for capital expenditures, landowners should benefit from the objective to present an atmosphere of coordinated development and mutual benefit for public and private sectors. In order to maximize this document for the benefit of the City of Haines, its image, employment and economy, the following uses are suggested: * the report should be adopted as an integral part of the City of Haines Comprehensive Plan; * the report should be circulated to the library and school system for public access; e copies of the entire document should be sent to state legislators; pertinent committees in the legislature; the University of Alaska, Office of Facilities Planning and Construction; private foundations; and, the State of Alaska Division of Tourism as documentation regarding the present and future efforts by the City of Haines to improve and enhance the economic, socio-cultural and physical aspects of the City; 0 the chapters dealing with the SPECIAL DESIGN DISTRICTS are in a format permitting each chapter to be used as a separate report, enabling each to be used for promotional purposes and as documen- tation for future funding requests; e finally, the report should become a necessary tool for the private sector in guiding develop- ment ideas. iv - I introduction US SR CANADA fairbanks bethel anchorage Yukon haines juneau sitka. context alaska British Columbia British Columbia, CANADA 2 bennett 3 skagway 4 HAINES 5 glacier bay national park 63 lynn canal 7 gustavus 8 juneau 9 sitka 10 petersburg 11 wrangell 12 klawak 13 craig 14 hydaburg 15 Ketchikan 16 US-CANADA BORDER 17 prince rupert IVA C3 southeast In developing and adopting a coastal management plan for the City of Haines, the City Council designated the Port Chilkoot vicinity of Portage Cove as an Area Meriting Special Attention (AMSA). The Alaska Coastal Management Act provides for this type of designation of geographic areas with extraordinary cultural or physical values. Designation of the Port Chilkoot/ Portage Cove area as an AMSA has provided the City of Haines additional funding from the state to sponsor a detailed development plan for the area. The plan provides a forum by which community residents, prop- erty owners, city officials, and funding agencies can come to a concensus on a program of development projects, public investments, and Land Management guidelines to take best advantage of the area's extraordinary values. WW - MR I h Wines area The Port Chilkoot/Portage Cove AMSA consists of 66 late January through March, 1982. The meetings in acres of upland properties and about 46 acres of January generated numerous comments by participants adjacent tidelands. Located adjacent to the business about the project area and its development poten- center of Haines and on the Portage Cove waterfront, tial.1 A thorough assessment of these comments the study district include the Haines small boat combined with a review of city planning documents harbor and Litering Floats, Port Chilkoot Dock, the identified four types of concerns people have about Chilkoot Center for the Arts, Fort William H. Seward the area: parade grounds, residential and commercial properties in the Fort Seward area, Port Chilkoot Camper Park, economic enhancement; the Chevron tank farm, Haines Senior Citizen Center, use of areas within AMSA by community residents; Tlingit Park, Portage Cove Cemetery, the Presbyterian retention of suitable land for future industrial Mission Reserve and Church, and the Sheldon Museum and development; and Cultural Center. preservation and development of the area's historic values. This final report covers work accomplished through three phases of the Port Chilkoot /Portage Cove pro- These general goal statements along with a listing of ject. Phase I of the study focused on development of comments were subjects of graphic and oral presenta- baseline economic, transportation, and social profiles tions at subsequent meetings with groups and individ- of the City of Haines and the study area and initial uals and at public workshops held in mid-February and formulation of development goals and objectives for late March. Each successive set of meetings triggered the AMSA. These were summarized in a Phase I report more extensive and detailed discussion of goals, of prepared in March, 1982. Phase II of the project how goals apply to the area in general and to specific identified and analyzed physical, economic, and other properties within the AMSA, and of specific develop- major land use determinants applicable to the AMSA, ment projects and land use considerations that either prepared and evaluated site plan alternatives incor- merit or do not qualify for inclusion in later phases porating a variety of projects to accomplish AMSA of the study. development goals and objectives, and presented a preferred site plan and land use management recommen- By this process of reiterative discussion, partici- dations. These were presented in a document prepared pants at meetings and workshops refined directions during May and June, 1982. This Phase III report given the project team and guided formulation of a highlights pertinent findings from early reports and preferred site plan and land management recommenda- presents an implementation plan for the development tions. These refinements, including one additional projects and land use guidelines finalized as a result goal statement, are summarized here. of Phase II. Economic Enhancement. Three major considerations The guidance in formulating goals, objectives, site are incorporated in this general goal. First, the development projects, and implementation considered waterfront, Fort William H. Seward, Sheldon Museum and Cultural Center, the Chilkoot Center for the Arts, the for inclusion in the final plan was contributed by the areals scenic values, and other art and cultural many Haines residents, AMSA property owners, city assets of the AMSA combine to form perhaps the Haines officials, and local business representatives who areals foremost visitor attraction. At present, participated in each phase of the project. They tourism in Haines falls short of its existing poten- include people who attended one or more of several tial as a major component of the Haines economy. This project presentations made to community groups and is, in part, due to a lack of concerted community four public workshops held in February, March, May, effort to provide facilities, activities, and accommo- and July. In addition, many persons met informally dations to attract visitors, or at least to encourage with members of the project team during this period. and enable travelers through Haines to stop, enjoy the area, and trade with local merchants. Development projects within the AMSA can aim at promoting and COMMUNITY GOALS TO GUIDE DEVELOPMENT IN THE PORT increasing tourism in Haines. CHILKOOT/PORTAGE COVE AMSA The process by which the community and study team See Phase I report for listing of comments and formulated goals to guide development in the AMSA Phase II for a more detailed discussion of the goal involved a series of meetings and workshops held from statements. 4 Second, the economic enhancement goal addresses the such close physical proximity to each other that problem of the business center of Haines not being facilities encouraging and enabling pedestrian move- effectively linked with the recreational and cultural ment through the AMSA should be feasible and bene- center located in the Port Chilkoot area. Both areas ficial. would benefit if projects are designed and constructed that, in effect, invite and guide people from one area The third consideration recognizes the area's impor- to the other. The downtown and Port Chilkoot are in tance to the Haines fishing industry. In addition to use of the small boat harbor by resident and transient fishing fleets, certain undeveloped tideland proper- ties are suitable for fishing related commercial or light industrial development. 17 E7 n El .41 _Z1 VK1 POT 98 COWO 'low V/ 0 U 0 k& 10E, ILI - ----- arnsa 0. 300 600 Use of Areas Within AMSA By Community Residents. contrast, an established and sizeable visitor traffic Approximately one-half of all designated public use through Haines already exists. Expanding the extent lands in the city are located within the Port Chil- of trade with travelers as well as offsetting recent koot/Portage Cove AMSA, a condition highlighted in declines in the proportion of travelers in Southeast meetings and workshops where development goals for the Alaska routing through Haines primarily depends upon area were discussed. Most participants appear to the community's resolve to develop and market its perceive tourist and resident use as compatible in tourism assets. While the historic importance of Fort many areas in the AMSA; but, for some specific areas, William H. Seward and its role in the Haines economy use by community residents was expressed to be the cannot be specifically qualified, existing fort paramount concern that ought to guide development structures combined with cultural and artistic attrac- planning. Such areas included Tlingit Park, the beach tions and accommodations currently available in the adjacent to Port Chilkoot Dock, Fort Seward parade AMSA are prime tourism assets. Special steps to grounds, and other designated open space. protect and enhance the economic value of the fort to the community are merited. Retention of Suitable Land For Future Industrial Development. Upland properties in blocks adjacent to Preserve Open Space Areas Within the AMSA. This Beach Road in the Fort Seward area are physically and consideration, stressed on many occasions during locationally suitable for a wide variety of industrial meetings and workshops, generally concerns developing and commercial developments. At the same time, they playgrounds or other public facilities at Tlingit Park are prominent parts of the visual and access corridors and the Fort Seward parade grounds. This point was that link Fort Seward historical buildings to the not raised typically in *opposition to any additional Haines waterfront. Consequently, types and scales of development of open space areas, rather it was to future development in this area can either reinforce advocate keeping the number and size of facilities or seriously mar the existing fort setting which is a scaled down and designing them to minimize loss of foremost asset in the community's visitor trade. This valuable open space. potential conflict between tourism and other types of commercial and industrial uses in the area stirred long and intense discussion at the public workshop held in late March. Agreements reached by the end of the meeting and reiterated at a workshop in early May set forth two goal considerations pertaining to future development in the lower fort area along Beach Road. First, participants agreed that opportunities for development of mixed commercial and industrial uses in this area should not be discouraged. In this regard, land management recommendations will not be aimed at regulating uses. Second, in recognition of the focal importance of the area to the fort's setting, it was allowed that some building design guidelines might be conditionally supported. The major condition is that the design guidelines do not impose financial hard- ships on property owners either through causing devaluation of their properties or through added costs of future development. Preserve and Enhance The Fort Seward Area's Historic Values. Growth in visitor-related activity in Haines has not kept pace with increases in tourism in Alaska and other southeast communities. For the Haines community, tourism differs significantly from other major industries. Levels of activity in the timber, commercial fishing, and transportation sectors are highly subject to market and resource conditions over which the local community has little control. In 6 Land Status. The Port Chilkoot/Portage Cove AMSA constitutes about six percent of the land area and 21 factors influencing percent of the tidelands within the corporate bound- aries of the City of Haines. The City of Haines owns development more than three-quarters of the tidelands area includ- ing the small boat harbor. Two tidelands lots are privately owned. Of the 65.6 acres of upland prop- FACTORS INFLUENCING DEVELOPMENT AND LAND USE IN THE erty, 68 percent is in private ownership, one-quarter AMSA is public use (tax exempt) land, and the remaining seven percent is owned by the city. One striking Community goals for the Port - Chilkoot/Portage Cove feature of land ownership patterns within the AMSA is AMSA directed the process of formulating future the relatively high concentration of the community's development and land use objective. A range of public use lands. Whereas the percentages of pri- factors, both internal and external to the area, vately owned and city owned properties within the AMSA shaped the process by posing constraints, presenting are comparable to the amounts of each throughout the opportunities, and highlighting community wide con- City of Haines, one-half of all designated public use cerns. Those factors found to be of greatest signifi- lands in the city are located within the AMSA. Public cance to the area's development future include exist- use areas include the parade grounds at Fort William ing property ownership, zoning, land use, physical H. Seward, the Chilkoot Center for the Arts, the parameters, existing and potential contribution to the Presbyterian Mission Reserve, harbor facilities, Haines economy, features of regional significance, and Tlingit Park, and the beach area north of Port Chil- policies affecting the AMSA adopted by the community koot Dock. through previous planning efforts.2 ............. 2These factors are discussed in more detail in the Phase II draft report. There are a total of 142 parcels in the Port Chilkoot/ There are 18 single family and 10 multifamily resi- Portage Cove AMSA. Of these, slightly more than dences in the AMSA. Together, these account for 7.1 one-half, 78 lots, are owned by 44 individuals or acres of AMSA land currently developed. The number of families, 33 are owned by eight corporations, 14 by acres in use for single family residences is propor- religious institutions, and 17 by local or state tional to the number city wide: slightly more than government. These breakdowns highlight a difficult six percent of the acreage developed as single family challenge confronting coordinated development planning residences is located within the study area. In f or the AMSA: there are many decision makers with contrast, 40 percent of the land within the city used separate and frequently divergent interest in the for multifamily housing is within the AMSA. The study area. multifamily structures provide a total of 25 dwelling units. In addition, there are nine apartments or Existing Land Uses. The land area of the Port Chil- living units with structures having other principal koot/Portage Cove AMSA constitutes about six percent uses. of the total land base within the City of Haines. In total, about 44 percent of the land area is committed Economic Development Considerations. Four major to developed uses, 23 percent is designated open industries constitute the basic sector of the private space, and the remaining third of the area is vacant. economy of Haines: forest products, commercial Developed uses within the AMSA include commercial and fishing, transportation and tourism. Together, these industrial businesses, single family and multifamily industries provide about 56 percent of local nongov- residences, public use facilities, and a number of ernment employment, an estimated 180 of 324 jobs. In miscellaneous structures. addition to direct employment and income, these activities generate additional jobs and income in The 5.2 acres of commercial properties within the AMSA other sectors of the Haines economy through their constitute about 39 percent of the acreage city wide purchases from other local firms and through household in commercial use. Commercial activities within the expenditures of the wages and salaries workers em- AMSA include the Halsingland Hotel, Mountainview ployed in basic industries earn. Motel, two businesses located in the S & W, Inc. building, the Post Exchange Restaurant, Sabek Expedi- In evaluating economic considerations for the purpose tions, a private campground, and the tribal house in of formulating development and land management plans the Fort Seward parade grounds. for the AMSA, two key issues need to be resolved. First, to what extent and how different basic economic AMSA land in light industrial and storage uses include activities pertain to the AMSA needs to be identified. Lutak Trading Company and its associated lumber Second, economic conditions that can be substantially company, Fort Building #37, the quonset hut, Chuck's affected by actions initiated at the community level Body Shop, a workshop, and the Alaska Indian Arts need to be distinguished from those over which there Building. Some old fort structures are used for is little local control or influence. storage but are classified here as miscellaneous structures. - Light industrial/ storage uses occupy 3.1 In general, timber harvest, processing, and shipping acres, about 15 percent of the acreage occupied by activities do not directly affect the AMSA. The mills these types of uses throughout the city. are located outside the city and the AMSA is away from roads used for transporting logs and products. The The Chevron tank farm is the only heavy industrial use AMSA offers few prospects for assisting'timber related in the AMSA. It utilizes about 1.9 acres. This is activities due to a lack of land and deep water one-quarter of the land within city boundaries having docking facilities suitable for this type of use and heavy industrial use. due to the concentrated use of Portage Cove by fishing vessels and pleasure boats. Public use facilities include the Sheldon Museum, the senior citizen center, the Presbyterian and Port The Port Chilkoot Dock and the Haines small boat Chilkoot churches, and the Chilkoot Center for the harbor are marine transport facilities located in the Arts. These occupy 4.3 acres and represent about 36 AMSA. Port Chilkoot Dock, controlled by the White percent of the land within the city in comparable Pass and Yukon Railroad Company, is used through lease uses. agreements by Standard Oil Company and the City of Haines. Standard Oil uses the dock to offload petro- leum f rom. a barge. The city's lease and subsequent 8 repairs to planking on the dock enables its use for processing facilities in Excursion Inlet, Juneau, passenger unloading from and loading onto cruise Petersburg and Ketchikan. Although locational disad- vessels which began calling at Haines this year. vantages and resource limitations effectively bar a major processing plant locating in Haines, local Historical use of Port Chilkoot Dock has included interest in establishing a small freezing/cold storage receipt and shipment of light freight. A policy in facility is high. Several sites in the AMSA appear to the Haines Coastal Management Plan recommends use of be suitable for this type of use. the dock and associated Fort Seward warehouses "for light industrial and commercial purposes which would Tourism. Trade with visitors to Haines from other not distract from the historic, scenic, and maritime areas of Alaska, other states, Canada and other flavor" of the area. With this exception, it is city countries is so pervasively associated with the Port policy to encourage continued concentration of water Chilkoot/Portage Cove AMSA that one assessment resi- transportation activities at deep water port facili- dents make about practically every site, facility, and ties in Lutak Inlet. Given the superiority of port activity occurring within the area is whether it conditions and cargo facilities at the municipal dock benefits or detracts from tourism. This does not in Lutak Inlet over conditions in Portage Cove, and suggest a solidarity of support for the industry. given that Lutak Dock is underutilized, future in- Ardent backers acknowledge it is a low wage, highly creases in most types of waterborne cargo shipments to seasonal sector of the economy. Some people frankly and from Haines will have little direct bearing on dislike tourism: the spurts of visitors crowding into activities in the AMSA. town, increased traffic, littering, upward pressures in local prices, hearing complaints made about Haines The Haines small boat harbor principally provides by strangers who are not enjoying the area. moorage facilities for the local gillnet fleet, other fishing vessels, and a few pleasure craft. It accom- On the other hand, tourism addes to the job base, modates seasonally a large concentration of vessels represents economic diversification that helps to fishing in Upper Lynn Canal and other transient boats. offset impacts of bad years in other basic industries, Use of the harbor exceeds its 148 vessel design pulls outside dollars into local circulation and is a capacity during peak periods but it is underutilized long term growth in industry statewide. Although it during other portions of the year. Due to its high is highly seasonal, by providing jobs for unskilled level of use in peak periods, future expansion of its and parttime workers, it contributes to broad base of moorage facilities is a persistent topic of discus- household incomes. The almost automatic practice of sion. Some additional moorage facilities could be weighing effects of tourism does not speak to the pros provided in Portage Cove by connecting moorage floats and cons of the industry, it communicates only that to the Port Chilkoot Dock. Due to the amount and tourism is the central economic feature of properties difficulty of dredging required, costs associated with and facilities located in the area designated for a major new expansion of the small boat harbor are special attention in the Haines Coastal Management prohibitively high. Plan. This means that a key to assessing development projects in the AMSA and land management recommenda- tions is their effects on visitor trade. The Alaska Yukon Motorcoaches Service based in Haines at the Halsingland Hotel is another transportation activity in the AMSA. Alaska Yukon Motorcoaches An estimated 63,000 visitors came to Haines in 1980. conduct package tours between Haines and other Alaskan Of these, about 62 percent came from out-of-state and and Canadian communities. Alaska Yukon Motorcoaches the remainder from Alaska. Of the 39,000 out-of-state and two local travel services -- Mar-Air Bus Company tourists, 78 percent arrived within the four month and Travelot Travel Agency -- run sightseeing tours period from June through September. An estimated within Haines and the AMSA. These activities respond 24,000 visitors were from other places in Alaska. The to influences affecting tourism in Haines which are travel flow of in-state visitors is smoother through- discussed later in this section. out the year, only increasing by several hundred a month in the June through September period over its Port and shore activities related to commercial monthly average of 1,800 in-state visitors for the fishing are centered at the Haines small boat harbor remainder of the year. in the AMSA. Since 1971, there has been no fish processing plant operating in Haines; fish harvested in Upper Lynn Canal are delivered by venders to Based on two surveys of out-of-state visitors con- grocery stores rather than restaurants, etc. For ducted for the State of Alaska during 1976-1977, a example, more than one-third of the summer travelers profile of visitor expenditures broken down into seven and forty-one percent of the out-of-state visitors categories is developed to represent typical visitor during the rest of the year spent an average of 18 and expenditure patterns in Haines. The statewide data 19 days, respectively, their stays in private resi- was modified by removing expenditures on transporta- dences. These proportions in large part explain the tion to and from Alaska, by increasing the percentages apparently low percentages of people reporting spend- of people reporting expenditures in each category ing on food and lodging and the correspondingly low except retail sales to remove most of the people dollar amounts of daily expenditures in the cate- traveling on organized tours, and by proportionally gories. increasing expenditures per visitor reporting spending in each category in correspondence with the previous change. The results are illustrated in the accompany- Haines offers accommodations, attractions, goods and ing graphic wherein the dollar amounts are adjusted to services representing each type of visitor expendi- 1982 values using a nine percent annual rate of ture. In the absence of area specific information of inflation. This graphic depicts both the percentage this type, these adjusted statewide characteristics of visitors reporting any spending in each category are used to approximate visitor spending patterns in and the average amount spent per day per visitor Haines. The estimated number of visitors to Haines in reporting purchases of the respective goods or ser- 1980 totalled 39,300 between June and September and vices. 23,700 during the remainder of the year. For a hypothetical one day stay and using weighted averages Both the percentages of people reporting expenditures of daily expenditures per all visitors expressed in in each category and the daily amount spent reflect a 1980 dollars -- $19.05 and $24.85 respectively for the variety of travel circumstances including people two seasonal periods, these visitor levels would visiting relatives or friends, camping out rather than inject about $1,337,600 into the local economy during staying in hotels or motels, purchasing food items in the year. Percent of Visitors Reporting Expenditures Expenditure Per Day Per Visitor Reporting Any In Each Category Spending In Each Category Food/Meals . . . . . . . . . . Food/Meals Lodging Lodging.. Retail Purchases Retail Purchases Interstate Auto Expenses Interstate Auto Expensesu@m_ Entertainment/Recreation Entertainment/Recreation Other Transportation Ps = visitors, June-Sept other Transportation = visitors, November-May Miscellaneous Other SW Miscellaneous Other... 0 = 5 percent Source: Visitor Census and Expenditure Sur- vey, Winter and Summer, 1976-1977, Parker Research Corporation, March 1978. 10 Implications of an average one day stay also can be Economic and Fiscal Assessment of Public Development viewed in terms of employment. In 1980, wages for a Projects. typical tourist related job in Haines equalled $720 per month. For retail and services firms in Haines, Six major and one minor waterfront development pro- wages paid employees represent about 18 percent of jects requiring government funding are included in the gross sales. If tourist related jobs average about development plan for the AMSA. Along with estimated six months in duration, about $48,000 of visitor costs for design, engineering and construction, these expenditures generate the equivalent of one year round are: job; thus, $1,337,600 would generate approximately 28 position. Note that the number of jobs are stated in 1) Tlingit Park Retaining Wall $ 73,480 terms of year round employment and the actual number 2) Lookout Park $159,681 of people seasonally employed is twice as high. 3) Selective Tree Thinning $ 7,280 4a) Pedestrian Way at Harbor Actual tourist related employment is estimated in (upperslope option) $102,212 Haines Coastal Management Plan to total about 35 jobs. 4b) Pedestrian Way at Harbor This level implies that annual visitor expenditures in (boardwalk option) $320,000 1110 totalled about $1.7 million and the average 5) Viewing Platforms and Connections $152,666 length of stay was about one and a quarter days. 6) Port Chilkoot Dock--Land Portion $ 52,309 7) Port Chilkoot Dock--Water Portion $612,250 This analysis of visitor expenditures is only repre- sentative of Haines tourist trade; a more accurate and detailed description could not be derived from avail- able information. However, it does highlight one In aggregate, the estimated costs of these projects important feature of tourism in Haines that probably total between $1.1 million and $1.3 million depending is valid and that is relevant to the purposes of the on which option for the pedestrian way at the harbor Port Chilkoot/Portage Cove Development Plan: an is adopted. average expenditure of less than $27.00 per visitor indicates a very low participation in the local These projects are essentially infrastructural im- economy by most tourists in Haines. This means there provements aimed at promoting increased resident and is a readily available tourist market that, in effect, tourist use of the central waterfront along Portage isn's being tapped at present. Actions that can Cove. None of the projects are of the type that will result in higher levels of visitor participation in generate revenues through direct user charges. the economy are much more within local spheres of Whereas they are expected to induce increases in @rivate and public influence than is the case inducing tourism in Haines, they will not generate revenues increases in activities in other basic industries in directly for the City of Haines and thereby amortize Haines. the initial investment over time. Although municipal sales and property tax receipts will rise as a result of increased visitor spending, these general taxes are not "returns on investments" nor are they similar in nature to service area assessments made to finance specific improvements. This is to say, the projects have fiscal implications but the direct governmental receipts will be small in relation to project costs. Provided the City of Haines acquires: Port Chilkoot Dock through purchase or long term, exclusive lease, some facilities incorporated into its redevelopment plan will produce lease and moorage revenues to the municipality. These, too, will be relatively small in relation to the cost of redevelopment. The major benefits directly associated with the public development projects are employment and income gener- ated within the private sector. In addition to public uses by residents, the projects are intended to attract, over time, additional tourists to the commu- nity, to help induce travelers driving through Haines creased investments in tourist facilities and accom- to stop and spend additional time in the community, modations by the private sector. One way to approach and, generally to promote visitor circulation between this problem is to make some modest assumptions about the Port Chilkoot area and downtown. The projects the total impact of public and private investments will have three types of impacts on the general combined without attributing the cause to one source economy of Haines. First, their instruction will or the other. This procedure will not produce esti- produce some local jobs, wages and other income of mates of impacts so much as it will depict the types short duration--that will end with completion of the of opportunities associated with the tourist trade in projects. Second, they will in combination induce Haines. direct growth in tourist related jobs, wages and other income on a sustained and annually increasing basis. In 1980P it is estimated that about 63,000 people Finally, direct jobs and incomes generated during both visited Haines. On an average, each visitor spent the construction period and on a sustained basis slightly more than $21.00 per day and the average following their construction will indirectly induce length of stay for all visitors was about one and additional amounts of employment and income primarily one-quarter days. In terms of the number of visitors, in the retail and services sectors of the economy. the 1980 level is roughly comparable to the number of people visiting Haines in 1975. In the interim between these years, the 1977 strike by Alaska Marine Construction of the waterfront projects included in Highway employees, the opening of the highway linking the AMSA development plan will cost between $850,000 Skagway to the interior, high fuel prices, and a and $1,000,000. This will directly generate between drastic fall off of general economic activity in $250,000 and $300,000 of wage and salary payments and Haines contributed to a sudden decline in tourism the annual equivalent of some 13 to 16 construction followed by a slow growth of about one and one-half jobs. The jobs are expressed in terms of annual percent annually. equivalents, and the actual number of construction workers will be from two to three times higher. Assuming that. public and private investments in Because construction of the projects are to be staged tourist related facilities jointly spur increases, in over several years, the actual increase in construc- activity to a level of three percent a year, the tion employment in any one season will be smaller than number of people visiting Haines in 1990 would rise to indicated. In addition to direct wages and employ- 85,000, a 34 percent increase over the 1980 level. ment, some small amount of construction materials or With no change in the average length of stay or in supplies may be produced locally. expenditure patterns, this would result in nearly a $600,000 per year rise in visitor expenditures. if,, as a result of additional accommodations and facili- In contrast to the temporary nature of jobs and income ties, the average stay is expanded by one-half day and generated by the construction phase of different spending increases from $21.00 to $25.00 per visitor projects, increments in tourist related activities per day (not taking inflation into account), the gain will be sustained from year to year. However, esti- in total visitor expenditures would be over $2 million mating the extent to which those projects will affect annually, more than double its 1980 level. This tourism is more speculative than in the case of amount would represent about 43 new tourist related constructive activity. Increases in tourist expendi- jobs yearly and $370,000 of additional community tures can occur in three ways: growth in the number income in the form of annual wages. of visitors traveling to or through Haines each year, Both the initial amount for construction and increases increases in the average length of stay in the commu- in visitor spending represent an influx of money into nity and increases in levels of expenditures per the local economy. As a result,, multiplier effects visitor. Implementation of the projects in the over and beyond the direct increases will occur as the waterfront development plan is anticipated to have new income circulates through the economy. Using each type of impact. The uncertainty in this context employment multiplier of 1.5 for construction and 1.2 is by how much. for tourist related activities, the construction phase The complication in estimating the magnitude of results in between two and three additional jobs and impacts is that any increases in tourism will occur about $21,000 income per year whereas. the direct not only as a result of implementing public projects growth represented for tourism generates another on the waterfront but, also, due to resulting in- 12 eight-to-nine jobs and about $75,000 per year in secondary impacts by 1990. In total, the construction phase produces some 20 to 25 jobs and $310,000 to $360,000; the combined direct and secondary impacts associated with growth in tourism equals about 50 jobs and $445,000 annually by 1990. Income generated by increased tourism and its second- ary impacts are used to calculate associated incre- ments in sales tax revenue to local government. In addition, a percent bed tax applicable to transient use of hotel and motel rooms would be an additional source of revenue associated with increased visitor travel. Some increases in property tax revenues resulting from new construction of visitor facilities and expansion of existing facilities, will also occur. Because tourist spending is for a wide range of goods and services and much of the increase will be absorbed by existing stores and businesses having differing amounts of excess capacity, estimates of changes in property tax revenues cannot be readily developed from information available. Sales tax revenue resulting from tourist spending estimated to be about $51,000 in 1980 would increase at about 8.1 percent per annum under the assumptions developed in this section. At this rate, this source of local sales tax revenue would produce about $112,000 per year by 1990. On average, this equals a $6,100 per year increase. A 3% bed tax applied to hotels and motels would generate an estimated $18,000 at current levels of operation. Under the same set of assumptions, the amount would also increase at the rate of 8.2 percent yearly, resulting in about $40,000 per year by 1990. 13 National Historic Site. Established in 1898, and Cultural and Art Center. Chilkoot Center for the garrisoned in 1902, the principal buildings of Arts is owned by the Haines Barony and its Fort William H. Seward are the best surviving operation is directed by a Board of Trustees structures of the eleven military posts erected appointed by the Borough Assembly. Rebuilt in in Alaska to police the gold rushes of 1897-1904. 1981, the new Center is equipped with modern The fort was involved in the boundary dispute stage, lighting, and acoustics. Regular users between the United States and Canada and was the include local theatrical groups, the Alaska only Army post in Alaska between World Wars I and Division of Parks, visiting concert artists, II. Fort Seward is designated as a National student performers, and the Chilkat Dancers. Historic Site and the principal structures still Biennially, the Center hosts the State of Alaska standing--barracks, officers' homes, quarter- Drama Festival. In 1983, Haines will host the masters'. medical center, warehouses, and the national drama competition of the American Port Chilkoot Dock--together are on the National Community Theatre Association which will be held Historic Register. at the Center. K 41 114, 4, 71 IJ 14 IMA 24f 441 14 The Land Use Policy Plan for the Haines AMSA consists land use policy plan of a series of OVERVIEW POLICY STATEMENTS. These STATEMENTS establish direction for land use, open space, public facilities, transportation, circulation, parking and and buffers within the AMSA. The objectives of the plan are to stimulate local and tourist oriented use of the public AMSA lands and to provide direction and coordination for private sector development which will benefit the City of Haines as well as individual property owners. The scope of the Land Use Policy Plan is as follows: the City of Haines has four distinct urban area assets - the downtown, the urban waterfront, Tlingit Park and Cemetery, and Fort William H. Seward. Utilizing these unique assets in conjunction with the Lynn Canal area natural features, the Plan seeks to encourage a positive and manageable increase in a visitor industry characterized by longer trip duration in Haines, while enhancing the living and working environment of local residents and business enter- prises. Now OPEN SPACE POLICY. THE URBAN AREA WATERFRONT,, FROM MAIN STREET SOUTH TO THE PORT CHILKOOT DOCK, SHOULD BE DEVELOPED AS AN OPEN SPACE AREA FOR DIVERSE BOTH LOCAL AND VISITORY-INDUSTRY USE. 00000@ Public open space, regardless of ownership, encom- passes over 30 acres of uplands, the Haines small boat harbor, and one-half mile of waterfront. The signifi- cant open space concentrations include: 9 the area south from Main Street to the Chevron tank farm between First Avenue and Front Street encompassing the Sheldon Museum site (public use), the Presbyterian Church and Mission Reserve properties (semi-public use), Tlingit Park (public use), and Tlingit Park Cemetery (public use); e the Port Chilkoot Fort William H. Seward Parade Grounds (public use); 0 Soap Suds Alley open space corridor (neighborhood use); * camper park along Mud Bay Road (private use); and * waterfront and tidelands from the Port Chilkoot dock to Main Street (public use). 2 Visitor-related commercial use for the AMSA is define RESIDENTIAL LAND USE POLICY. EXISTING RESIDENTIAL d NEIGHBORHOODS AT FORT WILLIAM H. SEWARD SHOULD BE as follows: PRESERVED AND ENHANCED. 9 transient-related eating, drinking and entertain- The single intense AMSA concentration of residential ment uses; land use occurs within the bounds of Historic Fort William H. Seward. The concentration of owner occu- * gift shops, galleries, specialty shops, arts and pied units, condominiums, rental units, transient craft shops; visitor-industry accommodations and artists' studio- residences comprises a unique and diverse area and * cultural centers and museums where artifacts are should be reinforced and safeguarded as a special available to the public for sale. neighborhood. Marine-oriented commercial is defined as: boat and Housing clusters within the neighborhood form nicely boat supplies, sales and service. scaled sub-neighborhoods yet are all related as a result of the overall fort architecture. The sense of Marine-dependent commercial consists of a use receiv- .. place" presented in these groupings is a valuable ing and/or sending materials, people, and goods by community resource and model. These clusters include: waterborne transport. New bulk storage facilities are not considered as appropriate in scale in such close � the former officers' houses on the parade proximity to the existing residential neighborhoods. grounds; 4 INDUSTRIAL LAND USE POLICY. NEW INDUSTRIAL USES � the Halsingland Hotel; the Mountain View Hotel; WITHIN THE AMSA SHOULD BE LIMITED TO WATER-ORIENTED AND/OR WATER-DEPENDENT MARINE USE OF A SCALE COMPAT- � Soap Suds Alley (former NCO houses); and, IBLE WITH ESTABLISHED NEIGHBORHOODS AND CULTURAL COMPLEXES. � scattered artists' studio-residences on the lower fort slope. Light industrial uses, consisting of non-polluting marine construction, office/ research, marine repair New intense residential development within the AMSA is and servicing is a compatible use of the northern and not anticipated in the Land Use Policy. southern periphery of the Fort Seward district. 3- Paramount to any industrial use locating within these COMMERCIAL LAND USE POLICY. THE MAJOR COMMERCIAL areas is the consideration for health and safety LAND USE WITHIN THE AMSA SHOULD BE VISITOR-ORIENTED impacts on existing established residential neighbor- SUPPLEMENTED BY WATER-RELATED AND/OR WATER-DEPENDENT hoods. MARINE USES. The Chevron bulk storage facility between Front Street Commercial uses are categorized into visitor-oriented and Haines Cut-off Highway is essentially a contained commercial and water-related/water-dependent marine use with no contiguous expansion space. The Plan does commercial. The major concentration of these uses not anticipate expansion of this facility or similar within the AMSA is in lower Fort Seward. Future uses within the AMSA. options exist regarding the intensity of the visitor- related commercial uses based on the successful re-utilization of portions of the Fort Seward area. A major events use, defined as a single major grouping of activities under one developer jurisdiction, i.e., University of Alaska, State of Alaska, or private development corporation, could form the nucleus for new capital and rehabilitation. The location of both the visitor-related and marine commercial uses will occur on the mid to lower Fort Seward slope properties between Fort Seward Road and the water, and, in the area north of the Haines Cut-off Highway/Mud Bay Road intersection. 16 BUFFER EDGE POLICY. PUBLIC AND PRIVATE DEVELOPMENTS * upland fort areas along Mud Bay Road and the SHOULD ESTABLISH LANDSCAPED BUFFER AREAS BETWEEN, cleared uplands immediately to the north between SIGNIFICANT CHANGES IN LAND USE ACTIVITY. Mud Bay Road and the Haines Cut-off Highw-cy: Landscaped buffers should define the edge between the * between Soap Suds Alley-Chilkat Center for the following areas: Arts area and bulk s torage-indus trial area to the southeast. o Haines Cut-off Highway traffic and the Chevron tank farm on the north as well as upland cleared land on the south; Lr 17 A CV \@x Ark, MR, 1, .4; I poftas wwo 00 3?z N <> 0 0 -lip t wj '.Jot! Z1_ 7D 13 W ZO 1&0 policy plan, land 600 300 0 17 6 NEW ACCOMODATIONS FOR VISITOR AND REGIONAL BUS AND VAN Utilizing improved street and sidewalk construction TRANSPORT SHOULD BE INCORPORATED IN ALL APPROPRIATE and improved traffic controls at the Mud Bay Road/ AMSA DESIGN IMPROVEMENTS. Haines Cut-off intersection, overall vehicular circu- CRUISE SHIP ACTIVITY SHOULD OCCUR WITHIN THE AMSA, AT lation should be adequately accommodated. THE PORT GHILKOOT DOCK, WITH ADDITIONAL LITERING PEDESTRIAN CIRCULATION POLICY. PEDESTRIAN WALKWAY, FACILITIES AT THE HAINES SMALL BOAT HARBOR. SIDEWALK, AND TRAIL IMPROVEMENTS SHOULD BE DEVELOPED THROUGHOUT THE AMSA WITH THE WATERFRONT AREA BEING THE Transportation to and from the AMSA consists of auto, "SPINE" FOR THIS SYSTEM. trucks, service vehicles, buses, and vans, commercial and pleasure boats, float planes, and cruise ships. Pedestrian circulation should be enhanced with sub- An expansion of all transportation modes is antici- stantial additions to a trail-walkway-boardwalk system pated in the AMSA and detailed design recommendations throughout the AMSA and adjacent city hall, downtown, for each special design district reflect this expan- and residential areas. sion. The waterfront linear pedestrian system will be a high Overall, significant transportation improvements in visibility, major image route. An upland trail the AMSA should include: connection to this system, in addition to existing improved street rights-of-way, should be established � additional cruise activity at both Port Chilkoot between upper Main Street, the Second Avenue future and the small boat harbor; development area, city hall, and Fort William H. Seward. � accommodations for additional pleasure boats due to possible influx from the Juneau area; Seasonally appropriate bikeways and cross country ski trails are recommended for the major pedestrian loop � visitor-oriented buses and vans throughout the system. The basic loop is recommended as follows: AMSA related to the cruise ship mode and longer 0 southward along First Avenue from Main Street trip duration visitor-industry; to and crossing the Haines Cut-off Highway; � improved pedestrian flow; 9 continuing southward to Mud Bay Road in the � additional private auto access for local resi- vicinity of the Totem restaurant; dents and visitors based on new and improved 9 through lower Fort Seward to Portage Street; public recreational facilities and private sector visitor industry developments. * northeast on Portage Street to Beach Road; 'VEHICULAR ---CIRCULATION POLICY. VEHICULAR CIRCULATION 9 north along Beach Road/Front Street in conjunc- THROUGHOUT THE AMSA SHOULD BE SLOW-MOVING, NEIGHBOR- tion with waterfront improvements across from the HOOD, TOURING-ORIENTED. Presbyterian Mission Reserve; and Circulation throughout the Haines urban area as it e west on Main Street connecting to Second Avenue. relates to the AMSA consists of the overall loop of Main Street, Front Street, Mud Bay Road, and Third occur within design Avenue. The Haines Cut-off Highway intersects this Secondary loops and connections loop in a northwest-southeast alignment. districts as follows: In order to preserve the integrity of existing and o connection to upper and lower Main Street; future neighborhoods within and adjacent to the AMSA, the Plan recommends the retention of the basic circu- * connection to Tlingit Park; lation pattern with the addition of Second Avenue being continued from Main Street to the Haines Cut-off 9 connection to city hall; Highway. First Avenue should remain terminated at the senior citizen center with a connection to Second e connection to upper Fort Seward and the parade Avenue. ground loop. 18 PARKING. VEHICULAR PARKING FACILITIES FOR WATER- Additional auto/service vehicle parking areas are RELATED ACTIVITIES SHOULD SEPARATE VEHICLE TYPES provided throughout the AMSA in conjunction with (FISHING VS. TOURISM) WHERE APPROPRIATE AND MITIGATE various public facility improvements. These are VEHICLE-PEDESTRIAN CONFLICTS. discussed in the design district sections. Generally, parking improvements are minimized along the water- Parking for automobiles should be clearly defined and front and consolidated throughout the Fort Seward distinct from boat trailer parking and maneuvering district on both public and private lands. areas as well as from load/off-load areas for commer- cial fishermen. 10 SEGREGATED PARKING ACCOMMODATION FOR VISITOR TRANSPORT .FACILITIES SHOULD BE INCLUDED ALONG THE WATERFRONT AND valt WITHIN THE FORT SEWARD COMPLEX. I? E3 IL-3 Q"x M A C3 PoTtage cown 0 0 U vt 0_, 0 U 0 U 0 13 w. policy plan, cir Goo 300 0 19 MOORAGE FACILITIES FOR RECREATIONAL AND COMMERCIAL 14 AN URBAN AREA-WIDE WATER SHED AND DRAINAGE STUDY SMALL BOATS SHOULD BE DEVELOPED AT THE PORT CHILKOOT SHOULD BE UNDERTAKEN WITH SPECIAL EMPHASIS ON THE AMSA DOCK. TO DESIGN A STORM DRAINAGE SYSTEM CAPABLE OF BEING CONSTRUCTED WITH AMSA PROJECT DEVELOPMENT. Expanded moorage for pleasure craft as well as commer- cial fishing boats is recommended for the Haines small Front Street/Beach Road, the Haines Cut-off Highway, boat harbor and the Port Chilkoot Dock area. Refer to Mud Bay Road, and Fort Seward Road loop are the the design district sections for more detail. existing paved roadways of the AMSA. The Plan recom- mends paving roadway and sidewalks for the following 12 AMSA streets: PUBLIC INFRASTRUCTURE POLICY. IMPROVED ROADWAYS, THROUGH PAVING AND NEW ROAD PRO- * First Avenue FILES, SHOULD BE AN INTEGRAL PART OF ALL INCREMENTAL PROJECT DEVELOPMENT THROUGHOUT THE AMSA. * Totem Street 0 Portage Street 13 Other side streets within the Fort Seward private PUBLIC FACILITIES POLICY. THE PUBLIC FACILITIES FOR sector development areas can be paved as service THE AMSA SHOULD SUPPORT RECREATIONAL USE FOR BOTH road/parking lots. LOCAL RESIDENTS AND VISITORS, AS WELL AS SERVICE FACILITIES REQUIRED FOR MARINE RECREATIONAL AND SMALL SCALE COMMERCIAL CRAFT. Design treatment of specific streets is discussed in the design district sections. Public facilities within the AMSA Plan include: New 8" PVC sewers were installed in 1975 the full � Haines small boat harbor; length of Front Street and Beach Road within the AMSA; and, along the Haines Cut-off Highway from the sewer � Sheldon Museum and Cultural Center; treatment facility to Third Avenue and southward along Third Avenue beyond Tower Road and the AMSA bound- � Tlingit Park and trail; aries. A f orce main connects the two lines in the � Tlingit Park Cemetery; vicinity of Tlingit Park. Future replacement of Port Chilkoot Fort William H. � waterfront parks and walkways for local and Seward's 1906 8" vitreous clay system is necessary to visitor use; meet future development requirements. � waterfront repair and service facility for Storm drainage design should be undertaken in detail small marine craft; and in the near future. Artificially created drainage problems adjacent to the AMSA in the area north of Mud � future acquisition or long term lease of Port Bay Road up to a point just south of the Main Street Chilkoot dock. shopping area and between Front Street and Third Avenue affect future downtown development as well as Tlingit Park and the Mission Reserve properties. Alleviation of this problem involves an analysis and design of the larger watershed drainage pattern. In the fort, storm drainage waters currently flowing in an easterly direction in the swale directly north of the officers' quarters should be redirected back toward their original (1900) overland watershed flow pattern, combining them with the proposed new Portage Street walkway, roadway, and drainage improvements. As an interim solution, smoother pipe design can be accomplished to reduce friction and facilitate a more improved temporary situation. 20 1-111"I'l-1, wl @01 A 011", 'Ito . ..........6 7,10 '11, Owl", "o-41- ME , 77 E, & 'M . ..... Oxi Z T Alaska Indian Arts, Incorporated, a non-profit corporation founded by Haines resident Carl Hein- miller, is dedicated to perpetuation of Tlingit arts and crafts. Its location in Port Chilkoot houses artists working in Tlingit art traditions. Haines- The First Century (1979) credits this effort -as "at least partially responsible for the revival of inter- est in Northwest Indian Arts." 21 PIN @- lu @txn&2 9'), 'Col @@S small boat harbor omission. museum 22 This aerial. oblique sketch depicts the existing waterfront for Special Design District One from Main Street to the Tlingit Park area. Significant water- front use includes the Haines small boat harbor. The remainder of the waterfront is undeveloped and charac- terized by a rocky shoreline and scrub deciduous trees. E7@ --7- _ J.- _A RIM PR 23 Recommendations for Special Design District One include a pedestrian way along the upper waterfront area highlighted by small viewing platforms, informa- tion signs, seating areas, pedestrian lighting, local art objects and access stairs to the beach. Develop- ment can be phased over time. -:6 F TZT! P91i ev\ 24 Special Design District 1: City of Haines Small Boat Harbor, Museum, Presbyterian Mission _rgan zing Structure or Principle Open space, composed of the Haines small boat harbor, the uplands around the Sheldon Museum and Presbyterian Mission, and the waterfront, is the dominant organiz- ing structure for this district. Primary Use(s) and Design Features Small craft moorage: year round use; T I.AMI - I protected by seawall; e no significant expansion probable; e minimal expansion of float system. Waterfront recreation and pedestrian access: viewing platform located at the foot of Main Street east of Front Street, containing an information sign, seating, totem pole(s) and seasonal canopy; 9 sheltered viewing platforms/artists' vantage points located between the mainland and the loading float, immediately south of the harbor; this is an optional design feature. This sketch depicts a future viewing platform connect- 9 Pedestrian way extending from Main Street south- ing the shoreline walkway with the existing loading ward to loading float which includes two small dock and view (vantage point of sketch). The covered viewing platforms with weather protection and shelter area would be protected from the wind with seating; and, separated from parking and vehic- transparent panels and would contain benches and ular circulation; tables. 9 distinct and separate pedestrian walkway along Front Street connecting to Tlingit Park district; 9 landscaped island along Front Street separating the harbor parking from Front Street through traffic; contains controlled access points; * vehicles loading and off-loading for commercial fishing industry and vehicles with boat trailers should be contained in the parking area provided south of the loading float; striping and channel- ization of the parking area is necessary to improve its efficiency and increase the number of vehicles being stored. 25 main *sddi site plan 200 .100 so 0 Visual open space reserves: 9 maintain and enhance Sheldon Museum and Cultural Center landscaped setting; 0 establish an open space zone on the Presbyterian Mission Reserve property between Front Street and the mission building complex; o limit waterfront fill to existing area and retain beach and tidelands in a natural state. 26 Options for the waterfront pedestrian way include a Materials used for construction could include a walkway along the upper edge of the existing slope, textured, brushed or raked concrete surface set in a or, a walkway entirely on pilings. The sketch views wood grid; or, the walkway could be constructed are north. entirely of wood planking. Large wooden timbers, capable of serving as benches, should separate vehi- The upper slope option provides for a walkway ten feet cles from pedestrians. minimum in width, constructed either at grade or raised slightly above grade for pedestrian protection. This option would not alter or disrupt the unconsoli- dated granular fill slope presently forming the edge of the parking area. Wig W, X/ V 27 The walkway option entirely on pilings is a more formal boardwalk structure set out from the slope in order not to disrupt or alter the unconsolidated granular fill slope, This boardwalk would allow pedestrians to be closer to the water and completely separate pedestrian traffic from vehicular traffic. Materials for construction would be similar to the first option. Ali ai'T 28 project schedule 1983 1984 s o n d f m a rn j j a s o n d f m a m j j project C= t= development funding design construction LI LJ drawings 0- construction 0) o waterfront walkway Orz-,r--nr-@(E) * sheltered viewing platform/connecting walk 0 * information signs 9 waterfront walkway, Phase II 29 funding sources 0 SHELTERED VIEWING PLATFORM OPTION AND CONNECTING PEDESTRIAN WAY BOARDWALK Design and Engineering Design and Engineeria& CITY OF HAINES OFFICE OF COASTAL ZONE MANAGEMENT MAYOR AND CITY COUNCIL STATE OF ALASKA DIRECT APPROPRIATION DEPARTMENT OF COMMUNITY AND REGIONAL AFFAIRS Budget Estimate: $10,000 Budget Estimate: $15,200 Purpose: Schematic Design, Design Development, Purpose: Schematic Design, Design Development, Construction Drawings and Engineering Construction Drawings and Engineering OFFICE OF COASTAL ZONE MANAGEMENT Construction Funding STATE OF ALASKA DEPARTMENT OF COMMUNITY AND REGIONAL AFFAIRS LEGISLATIVE APPROPRIATIONS Budget Estimate: Same as above, OCZM is an alter- LOAN PROGRAM, for essential facilities maintaining nate source for the same budget or expanding employment opportunities; amount. ECONOMIC DEVELOPMENT ADMININSTRATION PUBLIC WORKS Construction Funding ASSISTANCE PROGRAM, for improving public facilities at harbors and building publicly-owned recreational LEGISLATIVE APPROPRIATIONS facilities to enhance an area's tourism facility. FARMERS HOME MORTGAGE ADMINISTRATION, LOAN PROGRAM OFFICE OF COASTAL ZONE MANAGEMENT ECONOMIC DEVELOPMENT ADMINISTRATION PUBLIC WORKS STATE OF ALASKA DEPARTMENT OF COMMUNITY AND REGIONAL AFFAIRS ASSISTANCE PROGRAM Budget Estimate: Up to $50,000 OFFICE OF COASTAL ZONE MANAGEMENT STATE OF ALASKA DEPARTMENT OF COMMUNITY AND REGIONAL AFFAIRS Budget Estimate: Up to $50,000 30 preliminary cost estimates Pedestrian Way, Including Information Sign/Orientation Material Upper Slope Option Platform (Deck) . . . 424 ft. x 10 ft. x 6.00 s.f. .. . . . . . . . . . . . . . 25,440 Railing (Wood) . . . . 1 x 424 ft. x 12.00/l.f . . . . . . . . . . . . . . . . . 5,088 Wood Preservative . .. . 30 gal, x 22.50 . . . . . . . . . . . . . . . . . . . . . 675 Viewing Platform . . . . 2 @ 125 s.f. x 34.00/s.f . . . . . . . . . . . . . .. . . . 8,500 Wood Benches . . . . . . 6 x 240 ea. ... . . .. . ................................. 1,440 Light Standards . . . . . 6 x 800.00 ea . . . . . . . . . . . . . . . . . . . . . . .....4,800 Conduit/Cable/Panel . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4,200 Information Sign . . . . . . . . . . . . . . . . . . ... . . . . . . . . . . . . . . . 2,800 Totem Sculpture . . . . . . . . . . . . . . . . . . . . . . . .. . .. . . . . . . . . 2,000 Misc. Materials . . . . . . . . . . . . . . .. .. . . . . . . . . . . . . . . . .. . . . 4,000 Utilities Protection/Coordination .........................................................1,000 Traffic Protection/Police and Signage .................................................... 6,000 Subtotal $ 65,943 Multiplier 1.55 (wage and materials cost factor, escalation/ inflation, Design Fees (Architect/Engineer), Contingencies) . . . . . . . . . . . . . . . . . . .. . . . . $102,212 Upper Slope Option: (Walkway built at top of embankment.) 31 Boardwalk Option Mobilization and Field Office . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10,000 Platform (Deck) . . . 424 ft. x 10 ft, x 32.00 s.f. . . . . . . . . . . . . . 135,880 Railing (Wood/Bridge) 2 x 424 ft. x 12,00/1.f . . . . . . . . . . . . . . .. . .. 10,176 Piling . . . . . ... 108 x 35.00 ea. . . . . . . . . . . . . . . . . . . . . . 3,780 Wood Preservative . . 30 gal, x 22.50 . . . . . . . . . . . . . . . . . . . . . . 675 Pile Driving . . . . .108 x 10' x 18.00 . . . . . ... . . . . . . . . . . . . .... 19,440 Viewing Platform . . .250 s.f. x 34.00/s.f.. . . . . . . . . . . . . . . . . . . . 8,500 Wood Benches . . . . 6 x 240 ea. . . . . . . . . . . ... . . . . . . . . . . . . 1,440 Light Standards . .. 6 x 800.00 ea . . . .. . . . . . . . .. . . . . . . . . . 4,800 Conduit/Cable/Panel 4,200 l.s. .................................................. 4,200 Information Sign . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2,800 Totem Sculpture . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2,000 Concrete . . . . . .3 x .4 x 150.00 . . . . . . . . . . . .. . . . . . . . . . 180 Misc. Materials . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1,750 Utilities Protection/Coordination . . . . . . . . . . . . . . . . . . . . . . . . . 1,000 Traffic Protection/Police and Signage . . . . . . . . . . . . . . . . . . . . . 6,400 Misc. Rip Rap . . . . . . . . .. . . . . . . . . . . . . . . . . . . .. . . .. 2,500 Subtotal $215,321 Multiplier 1.55 (wage and materials cost factor, escalation/ inflation, Design Fees (Architect/Engineer), Contingencies). . . . . . . . . . . . . . . .. . . . . . $320,000 o 32 32 Viewing Platform and Connections between Boardwalk and Loading Dock Mobilization and Field Office . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10,000 Platform (Deck) . . . 155 ft. x 10 ft. x 32.00 s.f . . . . . . . . . . 49,600 Railing (Wood) . . . . 155 ft. x 2 x 12.00/l.f . . . . . . . . . . . . . 3,720 Piling (@ 40 ft. Delivered) . . . . 42 ft. x 35.00 ea. . . . . . . . . . . . . . . . . 1,470 Wood Preservative . . 15 gal. x 22.50 . . . . . . . . . . . . . . . . . 338 Pile Driving . . . . 42 x 12 ft. x 18.00 . . . . . . . . . . . . . . . . 9,072 Viewing Platform . . . 12 ft. x 32 ft. x 36.00/s.f . . . . . . . . . . . . 13,824 Railings (w/seat) . . 56 ft. x 17.50 . . . . . . . . . . . . . . . . . . . 980 Roof Super Structure . . . . . . . . . . . . . . . . . . . . . . . . . . . 2,450 Transparent Windscreens . . . . . . . . . . . . . . . . . . . . . . . . . 2,000 Light Standards . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2,400 Light Fixtures . . . 2 x 75.00 . . . . . .. . . . . . ... . . . . . . . . . 150 Beacon Light . . . . . . . . . . . . . . . . . . . . .. . . . . . . . . . . 200 Conduit/Cable/Panel . . . . . . . . . . . . . . . . . . . . . . . . . . . 1,600 Concrete Work (Foundation, Transition, Block) 2 x .3 cy x 150.00 . . . . . . . . . . . . . . . 90 Misc. Metals . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 600 Subtotal $ 98,494 Multiplier 1.55 (wage and materials cost factor, escalation/ inflation, Design Fees (Architect/Engineer), Contingencies) . . . . . . . . . . . . . . . $152,666 33 @c -Z@ V@jj/"J lh@ &0 @AOW2 92, I.Oiq '(Ba" ntnC2 2 ULU flingit parko cemom*Anry lookout park 34 Existing conditions within Special Design District Two include the Tlingit Park and Cemetery facilities as public open space areas; and, an undeveloped, par- tially earth-filled waterfront edge condition. W 35 Recommendat ions include unifying the activities and image of this district by restoring the cemetery as an historic focal point; by providing improved safe access between the waterfront and Tlingit Park; and, improving pedestrian access to and use of the water- front through the construction of a waterfront theme park. Off-street parking for cars and a bus/van cut-in lane will improve access and circulation in the area, ORW 1.11 ITT I- Ij- 36 Special Design District 2: Tlingit Park/Cemetery/ Organizing Structure or Principle Lookout Park. This district includes Tlingit Park and Cemetery and Lookout Waterfron't Park. This district's design connects the community-oriented passive Tlingit Park upland to the more visible and visitor-oriented Lookout Waterfront Park. Tlingit Park Cemetery provides an edge and backdrop to both the upland as well as the waterfront parks. Dispersed views through a mature stand of Spruce in the cemetery visually integrates upland and waterfront. 0 r-ainage I city land cernete tlingit park T tan 0 private C3 0 0 %0 sdd2: existing 150 100 so 0 37 Prima'ry Use and Design Features * small scale cooking; Tlingit Park passive community recreation area: * grassed, open space; year round use; 9 pedestrian trail connecting Tlingit Park with Fort William H. Seward to the south and the Main restroom facilities; Street shopping area to the north; bandstand) shelter; drainag! 13 k vacate row. beach walk 4 chevron I UU1 sdd 2: lookout park ISO 100 so 0 38 Lookout Waterfront Park: � waterfront park for seasonal viewing and creative * play sculpture utilized as a focal point as play based on an image derived from local cul- well as a vantage point; ture; * materials should be predominantly wood; � information signs for location and identification of scenic viewsP historic, geographic and cul- 0 park can be utilized for small formal and infor- tural aspects of the community and region; mal public gatherings. � pedestrian and security lighting; � off-street parking for autos and tour buses and vans; AI lot, 39 COD Al ARM 0 00 The INFORMATION SIGN should reflect local culture, history, geography and art in its design and cosntruc- tion. The sign is a valuable tool in influencing and directing visitors to cultural as well as commercial activities in the City of Haines. Sensitive design The sketch above illustrates conceptual features of and careful installation will contribute 'to the the information sign including carved post supports waterfront's overall image. and graphics portraying the viewshed. 40 Front Street right-of-way: o controlled access from Lookout Point parking o new pedestrian walkway extending along Front area; Street between Lookout Park and the Port Chilkoot dock; includes small viewing platforms with o designated, painted, and signed pedestrian seating, access stairs to the beach and optional crosswalk from Lookout Park to Tlingit Park and covered viewing areas. Cemetery; � safe and convenient access to beach; � designation of natural-state beach walk; � the existing outfall line and drainage should be maintained and extended to the north of Lookout Park and should become its northern boundary. � improved st air access to Front Street and the waterfront. 41 The RETENTION WALL is an erosion control measure and should be constructed of wood or other visually "soft" materials. its 42 Tlingit Park Cemetery: e designate as a community historic site and vantage point; 6 restore the grave markers, wooden balustrades., and seating areas to a sound and aesthetic condition including proper foundations for markers, balustrades, and seating to protect against wind and snow damage; � provide pedestrian lighting features within the cemetery for security and highlighting purposes; � construct an erosion control wall along the east boundary of the ' cemetery parallel to Front Street; the retention wall should be designed as a backdrop for Lookout Park and constructed of materials compatible with local area character- istics. CO Al 43 0 Retention Wall and Stairs M@ 80@ (Do Lookout Park OW 0 o Pedestrian Way &*oOOoaoOA o Tlingit Park Cemetery Restoration A wmmwm@,& o Tlingit Park Improvements project schedule 1983 1984 S 0 n d f M a M 0 n d f M a M project development funding A design OA0000004 NA, construction drawings Ooo 0, no AmA C) C. .0 10 1 T-V. 44 A detailed description of each funding source is X9 TLINGIT PARK CEMETERY RESTORATION provided at the end of this chapter. Design and Engineering CITY OF HAINES MAYOR AND CITY COUNCIL DIRECT APPROPRIATION fr^&ks funding soul %.Aw Budget Estimate: Option 1 - survey, layout origi- nal plots, markers, balustrade $5,000 Option 2 - typical restoration details, furniture, balustrade TLINGIT PARK CEMETERY RETENTION WALL appearance $750 Purpose: Design and Construction Details for use Design and Engineering by local residents CITY OF RAINES Construction Funding MAYOR AND CITY COUNCIL DIRECT APPROPRIATION CITY OF HAINES MAYOR AND CITY COUNCIL Budget Estimate: $7,400 DIRECT APPROPRIATION Purpose: Schematic design, Design Development, Local Contribution of labor, materia -Is and assembly Construction Drawings and Engineering X 9 PEDESTRIAN WAY Construction Funding Design and Engineering CITY OF HAINES LEGISLATIVE APPROPRIATIONS to the City of Haines MAYOR AND CITY COUNCIL DIRECT APPROPRIATION LOOKOUT PARK Design and Engineering OFFICE OF COASTAL ZONE MANAGEMENT STATE OF ALASKA DEPARTMENT OF COMMUNITY AND REGIONAL AFFAIRS CITY OF HAINES MAYOR AND CITY COUNCIL Budget Estimate: $5,000 (for section along Front DIRECT APPROPRIATION Street in Special Design District 2) Budget Estimate: $16,000 Purpose: Schematic Design, Design Development, Purpose: Schematic design, Design Development, Construction Drawings and Engineering Construction Drawings and Engineering Construction Funding Construction Fundin LEGISLATIVE APPROPRIATIONS LEGISLATIVE APPROPRIATIONS ECONOMIC DEVELOPMENT ADMINISTRATION PUBLIC WORKS ECONOMIC DEVELOPMENT ADMINISTRATION PUBLIC WORKS ASSISTANCE PROGRAM ASSISTANCE PROGRAM, for improving public facilities at harbors and buildings, publicly-owned recre- DEPARTMENT OF TRANSPORTATION ational facilities, to enhance an area's tourism industry. DIVISION OF PARKS/TRAILS AND FOOTPATHS .45 preliminary cost estimates Tlingit Park Cemetery Retention Wall and Stairs Mobilization . . . 1,500 Wood Wall and Braces (local installation) . . . . . . . . . . . . . . . . . . 2,000 Drainage Pipe . . . . 450 ft. -24" C.M.P. @ 22.00/ft . . . . . . 9,900 Concrete Stairs . . . 2x2O ft. x 25 ft. x .83 - 27 x 165.00 . . . . . ... . . . 5,072 Stair Railing . . . . 80 ft. x 15.00/ft . . . . . . . . . . . . . . . . . . . . . 1,200 Walk . . . . . . . . 420 ft. x 6 ft. x 2.50 . . . . . . . . . . . . . . . . . . . 6,300 Drainage Structures 3 ea. @ 1,400.00 4,200 (MH, CB, Di, pipe) General Fill . . . . . 440 ft. x 124 s.f. - 27 x 3.00 . . . . . . . . . . . . . . 6,062 Select Fill . . . . . 420 ft. x 16 ft. x 1 ft - 27 x 5.00 . . . . . . . . . . . . 1,244 Foundations . 480 ft. x 3 s.f. - 27 x 120.00 . . . . 6,400 Counterparts . . . . . 20 ea. x 18 c.f. - 27 x 240.00 . . . . . 3,200 Pavement Patch . . . . 440 ft. x 3 ft. x 2.50 . . . . . . . . . . . . . . . . . . . (Bit. conc. PVT) Bit. Curb . . . . . . 440 ft. x 2.50 . . . . . . . . . . . . . . . . . . . . . . 1.100 Lighting (St airways) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2,000 Subtotal 47,478 Multiplier 1.55 (wage and cost factor, escalation/inflation, architect/engineer fees) . . . . . . . . 73,480 OFFICE OF COASTAL ZONE MANAGEMENT STATE OF ALASKA DEPARTMENT OF COMMUNITY AND REGIONAL AFFAIRS Budget Estimate: Up to $50,000 46 Lookout Park Mobilization . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5,000 Bit. Conc. Pavement. . 6,000 s.f. x 1.85 . . . . . . . . . .. . . . . . . . . . 11,100 Separator Islander . . 120 ft. x 8 ft. x 2.00 . . . . . . . . . . . . . . . . . . . 1,920 (pavers) Bollards . . . . . . . 40 + 75.00 ea . . . . . . . . . . . . . . . . . . 3,000 Pavers (Walk) . . . . 6,000 s.f. x 2.00 . . . . . . . . . . . . . . . 12,000 Curbing. . . . . . . 250 s.f. x. 12.50 . . . . 3,125 (Straight,curved) Wood Decking . . . . . 1,400 s.f. @ 15.00 . . . . . . . . . . . . . . . . . 21,000 (w/o piles) Misc. Wood Appurtenances . . . . . . 17,500 (stairs, signs, benches, furniture) Railing . . . 150 ft. x 12.00 1800 Lighting Standards . 5 x 8.0O . . . . 4,000 Plantings . . . . 6 ea. @ 450 . . . . . . . . . . . . . . . . . . 2,700 (including topsoil,etc.) Piling . . 15 x 35.00 . . . . . . . . . . . . . . 525 Pile Drivings . 15 x 10 ft. x 18.00 . . . . . . . . . . . . . . 2,700 Wood Preservatives . . . . . . . . . . . . . . . . . . 1,000 Concrete Foundation . . . . ... . . . 2,600 Excavation/Embankment/Compaction o . . . . . . 6,250 Walk . . . . 120 ft. x 6 ft. x 2.50/s.f. 1,800 Subtotal 103,020 Multiplier 1.55 (wage and cost factor, escalation/inflation, architect/engineer fees, contingencies) 159,681 47 Selective Tree Thinning Along Front Street Clearings and Grubbing of Scrub Trees and Underbrush 2.6 acres @ 2,000/ac. . . . 5,200 Subtotal 5,200 Multiplier 1.40 (wage and cost factor, escalation/inflation, contingencies) . . . . . 0 . . . . . . . . . . . . .7,280 This project could be a LOCAL CONTRIBUTION project, greatly reducing the above costs. 48 transition zone 49 District 3: Transition Zone. This district includes the Chevron bulk storage facility, the Mud Bay Road/ Haines Cut-off Highway intersection area, commercial uplands, and unimproved private sector tidelands. Organizing Structure or PrinciDle The bulk storage facility is a dominant form located at a primary entrance to the Fort Seward area. The facility becomes a landmark, an edge to the Tlingit Park district, and a screen between the waterfront and upland commercial uses. Coupled with the intersec- tion's road right-of-way, the tank facility divides this transition zone into segmented development parcels somewhat buffered from historic and open space areas. Primary Uses and Design Features Chevron bulk storage facility: maintain in a safe and aesthetic manner with improved landscaping along the Front Street slope. Commercial development between Mud Bay Road and Haines Cut-off Highway: office retail and general commercial use with off-street parking; upland boat storage and repair service area. In:ersection of Mud Bay Road and Haines Cut-off Highway: e maintain safe sight lines for all directions of traffic due to obtuse angle of intersection and change in elevation on approaches; * landscape the lower Totem restaurant site in a manner not obstructing vehicular line of sight at the intersection. Waterfront area: � the beach area should remain in a natural state; � a pedestrian sidewalk or trail should be provided along Front Street to connect Lookout Park to the Fort Seward waterfront area; 50 building development on the tidelands would be 9 selective clearing of scrub trees and bushes difficult from a construction standpoint for should occur along entire district waterfront. small scale structures; development is not ruled out due to lesser negative impacts on upland uses, Any proposed development should meet shoreline management objectives and be water- related or water-dependent low intensity uses. Parking is limited due to location and should not occur along waterfront; residential uses are not water-related and not compatible in close proxim- ity to an oil bulk storage facility. oar 51 2 lower fort william h. seward 52 District 4: Lower Fort William H. Seward. This district encompasses the lower slope portion of Fort William H. Seward from the alley northeast of the barracks buildings to Port Chilkoot dock and between Totem Street and the service road south of the Chilkat Center for the Performing Arts. The lower fort area is characterized by one to one and one-half story structures, narrow and linear in form, located parallel to the topography. Historically these structures were used as storage and wagon sheds as well as mule and horse barns. The first building constructed at the job site, the communications building, still stands at the intersection of Beach Road and Portage Street. The former NCO housing, referred to as "Soap Suds Alley", historically linked the waterfront to the parade grounds. _,M11- @7 /Z 1171 53 Recommendations for the lower fort area include a combined adaptive re-use rehabilitation program and new building in-fill construction. New and expanded use of the area could include marine-related commer- cial and visitor-industry retail as well as cultural, arts and education-related uses. New buildings should retain the long low linear characteristics of existing structures, maintaining established roof pitches and building proportions. Existing historic fort structures should be rehabili- tated with at least 75% of the historic exterior facade retained, benefiting the overall area image as well as providing substantial tax credits to owners and/or tenants. vr'71@ J. 54 Organizing Structure or Principle a university/community college scaled facility operating a local, regional, and state-wide The historic and still functional building pattern is center for the theatre arts, fine arts, and recommended for continuance for new as well as remod- arts associated with regional culture; eled structures. a conference center supported by local, Reinforcing this pattern are three cross slope pedes- regional, state-wide, and national activities trian and/or vehicular routes connecting the upper diverse in program type; such a facility would fort and parade ground with the waterfront area. provide extended housing, recreation opportu- These "spines" consist of: nities, and conference facilities; management � Totem Street for vehicular access and supportive would be through a public-private corporation; pedestrian use.; visitor industry facilities using the existing and developing arts and drama facilities as a � Portage Street for vehicular access, major base. National, regional and state-wide art pedestrian use, and visual access from the Port festivals could become consistent annually Chilkoot dock; using the entire fort area. � "Barracks Promenade" for major pedestrian use and Soap Suds Alley Neighborhood service vehicle access. The scale, construction, design and grouping of Retain and protect the existing residential community. the former NCO housing, Soap Suds Alley, is difficult to duplicate and should be preserved, Soap Suds Alley open space should be retained. reinforced and enhanced as a quality residential Visual and pedestrian access from the dock to "Bar- neighborhood. racks Promenade" will reinforce use of the lower slope Marine Oriented Uses core area. The former barracks buildings should be rebuilt to the 9 Marine water-oriented and/or dependent uses can scale of the original structure. coexist along Beach Road and the waterfront. The diversity of these uses should provide a comple- Landscaping should be designed to define and highlight mentary and supportive level of interest and exterior spaces. activity to the new major event uses suggested above. Completing the organizing structure for the lower fort Open Space and Views area is the waterfront itself. It constitutes an area where the fort literally reaches into the water, 9 Usable open space in the form of outdoor court- providing a dramatic entry point to the city and fort yards should be required as part of any new area. In addition, the relative north-south; orienta- development within the lower fort area, regard- tion of the waterfront connects the Fort Seward less of use. Space in between buildings can districts to the remaining AMSA. effectively be utilized for both parking and seasonal outdoor passive recreation, work, and exhibit areas. Primary Uses and Design Features Views through to Portage Cove and surrounding mountains should be preserved in view corridors Special education facility and visitor industry along Totem Street, Portage Street, and Barracks development: Promenade. o Three significant major event options are recom- mended for further research and eventual develop- ment and implementation for Fort William H. Seward which affect the lower district, namely: .55 loop - 71@m At. -A _vpi 56 Design Options for Private Lands 0 Option I - a wide stepped wooden promenade descending from Ft. Seward Road in between the A wider range of designations exists for private Barracks down to Building #37. The promenade lands, yet need to be coordinated with public improve- becomes part of a service road for one block, ments. Therefore, a range of options'is depicted for then is re-established as a pedestrian promenade consideration and as design guidelines which highlight to Beach Road. As the promenade enters the open and reinforce the living and work environment of the space immediately down slope from the barracks lower fort area as well as increase the overall buildings, it widens into a plaza complete with private sector development potential. vertical sculpture (totem poles), seating areas, exhibit areas, and standards for temporary cover, Open Space: Barracks Promenade and Plaza and low unobstructive landscaping. Associated with the plaza could be a small community garden and visitor and staff parking along with general recreation space. A restroom facility should be located wi thi the plaza area. option "A 00 0 00 00 200 100 so 0 57 All landscaping patterns in Option I are perpen- 9 Option 2 - low level landscaping is located dicular to the water, mountains, and fort so as immediately adjacent to Portage Street to define not to obstruct views. the initial view corridor. Soap Suds Alley open space becomes more "off-limits" to public tres- 9 Option 2 - depicts interior-block parking inte- pass while remaining visually accessible. Larger grated with general landscaped open space areas. trees are planted along the lower portion of the alley" to enhance the entry to the district. Open Space: Soap Suds Alley 9 Option 1 - low level landscaping is located close in to the residences to define the limit to the I. alley" open space corridor perceived as a public place; larger trees stepped back from Portage Street to the former NCO houses defining the .1 entry to the "alley". option 2 ink ZM 00 0 000 00 00 200 100 50 0 58 Circulation and Parking service as well as a pedestrian way. Various options exist, of equal merit, regarding the � All options for the lower fort district depict specific location of street use for through common off-street parking areas; these off-street vehicles. As development plans progress within areas can also assist in winter snow plowing the private sector, these decisions can be efforts, providing larger surface areas on which. finalized. Option I depicts Barracks Promenade to store snow. The development of these parking vacated for vehicular access (except emergency areas can be implemented and managed by a corpo- vehicles) between Beach Road and the next paral- ration consisting of area owners. lel cross street; Option 2 depicts the street as operational between Beach Road and the next � The street patterns in Option 1 and Option 2 parallel cross street. depict both Totem and Portage Streets as collec- tor streets connecting the district to Beach Road Building Development Opportunities and Mud Bay Road via Fort Seward Loop. Barracks Promenade, between Portage and Totem Streets, is Development within the lower fort district will be used as an access road to parking, delivery and influenced by increase cruise ship trade; national and state exposure of the area resulting from festivals and arts functions; and, the tourism attraction for historic Fort Williams H. Seward, as well as portions of Main Street. -- - ------------- - - J_ di 59 The physical, three-dimensional nature of new develop- Characteristics of the site which influence new ment can either enhance or hinder the history, image construction include: and economic quality and marketability of the area. e Portage Cove Viewshed; As an example of the diversity in design which can be accomplished refer to the Development Opportunity 9 primary pedestrian access along Portage Street; sketches. By maintaining the scale, roof pitch and materials of the historic structures, new buildings as in dl can be contemporary and different while fitting 0 adjacent and surrounding fort warehouses located into the overall pattern. Sketch d2 depicts new parallel to the topography lines, in a narrow contemporary structures more reflective of existing linear building pattern; shape and historic architectural characteristics. 0 one story structures; Both options meet overall design standards, "fit" within the historic building envelope and encourage 0 parallel open space between buildings for common developers to pursue creative economic development. parking, service and outdoor activities; e north to northeast daylight exposure, greatly reduced during the winter season; 9 access to the waterfront. -7 Ti d 2 60 Port Chilkoot Dock: the existing lease arrangement for the dock needs to be modified to allow public access for recrea- � Port Chilkoot Dock should continue to be restored tional purposes such as a public fishing pier, for safety and structural integrity using mate- charter and rental boats; rials similar with the original construction; 0 the City of Haines should control the dock and � the dock runway should be reinforced to accommo@_ its activities either through direct ownership or date visitor buses or vans during inclement a long term lease. weather, and if feasible for safety; � moorage floats for commercial fishing boats, rental, and charter pleasure boats, and privately owned recreational craft should be developed at the base of the main dock; ............. Az E HE_@ shf%-Iter ---------- dq@ck deck 0 chilkoot dock site plan . ...... 1SO 100. so 0 61 Fort Seward Waterfront Park and Boardwalk: o a small formal plaza with bus/van cut-in lane should be developed at the entry to the Port * develop a park which meets the specific needs of Chilkoot Dock including: the local community, Fort Seward neighborhood, and seasonal visitors; this park should include: information sign indicating location relative to area facilities, the cultural and historic a natural beach area for walking and swimming; background of the City as well as physiograp--- hic data about the mountains and bodies of a lower level play sculpture-park which uti- water; lizes local animal sculptures for slides to the beach and as creative play areas; totem poles and other vertical artworks. a higher level viewing platform for a "par- ents-watch", visitors' viewing area, and general seating area; all levels are accessible from one another, integrating the upper boardwalk level with the beach through a series of differing recrea- tional experiences. * develop a pedestrian way along the Fort Seward waterfront from the Mud Bay Road intersection to Port Chilkoot Dock; girl, 62 � additional structures should be considered for the main dock, utilized as community meeting areas, seasonal retail sales areas, and commer- cial fishing storage and work areas; � the main existing structure should be restored as a community meeting hall and multi-purpose building, varying in use by season; 63 64 project schedule io,83 t984 S 0 n d f M a m 0 n j M a m project 0 development @P@ AMNON M@ 0 t@= 0 design 0 :=:30 0=3e construction drawings n construction & hft@ town= 1@ 0 T- o Fort Seward Waterfront Park =mom o Port Chilkoot Dock o Pedestrian Way 0 65 funding sources e FORT WILLIAM H. SEWARD WATERFRONT PARK Construction Funding Design and Engineering LEGISLATIVE APPROPRIATIONS OFFICE OF COASTAL ZONE MANAGEMENT FARMERS HOME ADMINISTRATION COMMUNITY FACILITY STATE OF ALASKA LOAN PROGRAM DEPARTMENT OF COMMUNITY AND REGIONAL AFFAIRS ECONOMIC DEVELOPMENT ADMINISTRATION PUBLIC WORKS CITY OF RAINES ASSISTANCE PROGRAM MAYOR AND CITY COUNCIL OFFICE OF COASTAL ZONE MANAGEMENT Budget Estimate: $4,700 STATE OF ALASKA DEPARTMENT OF COMMUNITY AND REGIONAL AFFAIRS Purpose: Schematic Design, Design Development, Construction Drawings and Engineering Budget Estimate: Up to $50,000 Construction Funding LOWER FORT WILLIAM H. SEWARD PRIVATE SECTOR LEGISLATIVE APPROPRIATIONS Historic Structures, adaptive Re-use ECONOMIC DEVELOPMENT ADMINISTRATION PUBLIC WORKS ECONOMIC RECOVERY TAX ACT) INVESTMENT TAX CREDITS ASSISTANCE PROGRAM OFFICE OF COASTAL ZONE MANAGEMENT New construction (with various conditions and STATE OF ALASKA requirements) DEPARTMENT OF COMMUNITY AND REGIONAL AFFAIRS COMMUNITY DEVELOPMENT BLOCK GRANTS Budget Estimate: Up to $50,000 ECONOMIC DEVELOPMENT ADMINISTRATION BUSINESS AND INDUSTRY LOAN SMALL BUSINESS ADMINISTRATION 502 PROGRAM e PORT CHILKOOT DOCK (Assuming City Ownership) FOUNDATIONS Design and Engineering UNIVERSITY OF ALAKSA A detailed description of each funding source is OFFICE OF COASTAL ZONE MANAGEMENT provided at the end of this chapter. STATE OF ALASKA DEPARTMENT OF COMMUNITY AND REGIONAL AFFAIRS PEDESTRIAN WAY CITY OF HAINES Design and Engineering MAYOR AND CITY COUNCIL OFFICE OF COASTAL ZONE MANAGEMENT Budget Estimate: $30,000 STATE OF ALASKA DEPARTMENT OF COMMUNITY AND REGIONAL AFFAIRS Purpose: Schematics, Design Development, Construc- tion Drawings, Engineering Budget Estimate: $12,500 Purpose: Schematic Design, Design Development, Construction Drawings and Engineering 66 Construction Funding LEGISLATIVE APPROPRIATIONS FARMERS HOME ADMINISTRATION COMMUNITY FACILITY LOAN PROGRAM) for essential facilities maintaining or expanding employment opportunities; ECONOMIC DEVELOPMENT ADMININSTRATION PUBLIC WORKS ASSISTANCE PROGRAM, for improving public facilities at harbors and building publicly-owned recreational facilities to enhance an area's tourism facility. OFFICE OF COASTAL ZONE MANAGEMENT STATE OF ALASKA DEPARTMENT OF COMMUNITY AND REGIONAL AFFAIRS Budget Estimate: Up to $50,000 67 preliminary cost estimates Fort William H. Seward Waterfront Park Mobilization . . . 6 . . . . . . . . . . . . 0 . . . . . . . . . . . . . . . . . . 3,000 Bit. Conc. Pavement. . 1,500 s.f. x 1.85 . . . . . . . . . . . . . . . . . . . . 0 2.%775 Curbing . . . . . . . 185 ft. x 2.50 . . . . . . . . . . . . . . . . 463 Wood Decking (on Posts) 800 s.f. x 15.00 . . . . . . . . . . . . . . . . . . . . . . 12,000 Wood Railings . . . . 120 l.f. x 12.00 . . . . . . . . . . . . . . . . . . . . . . 13,440 Light Standards . . . 8 @ 400 . . . . . . . . . . . . . . . . . . . . . . . . . . 39,200 Misc. Wood (stairs, signs, furniture) * . . . . . . . . . . . . . . . . . . . . . . 29500 Shelter . . . . . . 0 . . . . . . . . . . . . . . . . . . . . . . 0 . 0 * . . . 2,600 Totem Sculpture . . . . . . . . . . . . . . . . . . . . . . . . . . o . . . . . . o 1,000 Posts . . . . . . . . 65 x 18.00 . . . . o . . . . . . . . . . . . . . . . . . . . 1,170 Wood Preservatives . . . . o . o . . . . . . . . . . . . . . . o . . . . . . . o . . 300 Concrete . . . . . . . . . . . . . 0 0 . 0 0 0 . . . . . 0 . . . . . . . . . . . . . 1,000 Shelter . . . . o o. . . . . . 0 . . . . . . . . . 0 . . . . . . . . . . . . . 5,000 Subtotal 33,748 Multiplier 1.55 (wage and cost factor, escalation/inflation, architect/engineer fees) o . . . . . . . . . . . . . 52,309 68 Port Chilkoot Dock Modification Repair/Replace Deck on Dock . . . . . . . . . . . .. . . . . . . . . . . . . o . . . 57,600 Repair/Replace Pilings/Pier . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2,000 Repair/Replace Pilings/Dock . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8,000 Buildings Renovation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 150,000 New Construction/Facilities Float Dock and Gangway Ramp 2,100 s.f. x 30.00 . . . . . . . . . . . . . . . . . 63,000 Railing . . . . . . 550 ft. x 12.00 . . . . . . . . . . . . . . . . . . . . . . 6,600 Light Standards . . 10 @ 400.00 . . . . . . . . . . . . . . . . . 0 . . . . . . 4,000 Power Service . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6,400 Community Work/ Storage Buildings 2,400 s.f. x 40 . . . . . . . . . . . . . . . . . 96,000 Dock ffardwate 2$400 Subtotal 395sOOO Multiplier 1.55 (wage and cost factor, escalation/inflation, architect/engineer fees) . . . . . . . . . . . . . . . . . 612,250 69 6' ljj I@Pft co@ Cl upper fort william h. seward 70 9 District 5: Upper Fort William H. Seward. Primary Uses and Design Features Organizing Structure or Principle The upper Fort Seward complex, defined by and orga- M - nized around the parade ground, is a neighborhood unit The parade grounds is the organizing structure for the of diverse housing types dominated by Officers' Row. upper fort. This open space has as its edge, the most This area should remain as such while recycling the significant residential and administrative buildings barracks buildings for use by a major events user of Historic Fort William H. Seward. The slope of the discussed earlier (University Conference Grounds, parade grounds decreasing in elevation from Officers' Visitor Center). Row to the barracks buildings, becomes a visible foreground to the elegant architecturally significant 0 preserve all building structures adjacent to residences on the upper slope.@ The nearby forested the parade grounds in a manner maximizing the areas and distant mountain range combine to create one original architectural character of those of the most dramatic*backdrops for any community structures. None of the Fort Seward Road loop anywhere. The very existence of this privately owned buildings contains uses incompatible with, the facility is a community asset of significant physical preservation of the histortc architecture; and economic potential benefit. hotel barracks officers! houses Sdd5 200 100 so OT 71 � restore the existing barracks building to its 0 limited parking facilities should be developed original architectural character assuming at the ends of the parade grounds across from necessary contemporary modifications for health the Halsingland Hotel and the Alaska Native and safety requirements in a public assembly Arts Center. These areas should be landscaped building; with lower-type vegetation; � reconstruct the demolished barracks structure 0 landscaping with flowering trees should occur similar to the existing structure in a phased along Fort Seward Road loop in a manner not manner if required by financial constraints; obstructing views from the residences. barracks platform 72 funding sources RESTROOM FACILITY AT BARRACKS PLAZA Design and Engineering CITY OF RAINES MAYOR AND CITY COUNCIL DIRECT APPROPRIATION Budget Estimate: $1,500 Purpose: Compatible design with the historic Fort Seward area including Schematics, Design Development, Construction Drawings and Engineering Construction Funding CITY OF HAINES MAYOR AND CITY COUNCIL DIRECT APPROPRIATION Budget Estimate: $20,000 e INFORMATION SIGN Design and Engineering LOCAL CONTRIBUTIONS ALASKA VISITORS ASSOCIATION Budget Estimate: $1,400 Purpose: Design of Protype sign, graphics, color selection, construction details. Construction Funding LOCAL CONTRIBUTION, Alaska Indian Arts Center provides carved posts; Chamber of Commerce and other tourism groups provide cost for map, print- ing, and map case; high school students provide installation with City of Haines supervisors. ALASKA VISITORS ASSOCIATION 73 project schedule 1983 1984. S o n d m aL r n a 0 n- f M a m project development _00 Funding 0 0 T-1 design AIL construction 0 drawings construction o Semi-Public Parking and Landscaping o Tree Planting 74 streets and sidewalks implementation pedestrian amenities (benches, covered walks, OVERALL IMPLEMENTATION PROGRAM AND STRATEGY landscaping, lighting) utilities Program Intent. drainage � To define the roles of city government and the private sector; * The city should assist the private sector in � to recommend a management structure for coordi- obtaining financing for projects in the community nated on-going implementation of specific pro- interest which enhance the overall economic jects; climate of the AMSA and city. � to recommend specific projects for implementa- e The city should enforce existing and newly tion; accepted codes and policies, including such issues as: � to identify the funding sources and scheduling derelict vehicles of these projects; vacant, abandoned structures � to identify special strategies required to accomplish implementation. temporary and non-conforming uses and structures The specific projects are listed and described within 0 The city should provide project planning and each appropriate SPECIAL DESIGN DISTRICT, along with project leadership. recommended funding sources and project scheduling. This -section will discuss the role of city government The city should support and participate in a and the private development sector, as well as a Southeast Alaska Regional Tourism organization to recommended review, decision-making and arbitration coordinate and unify promotional efforts for the body necessary for successful implementation. region. Role of the Private Sector. Role of the City of Haines. 9 The private development sector, composed of landowners, leasees and investors, should provide � the city of Haines should act as an administra- land, organizational structure and capital tive entity for public and/or private-public expenditures and adaptive re-use construction; implementation efforts, including project packag- o Private development should provide urban design ing, funding, sponsorship and management; , amenities, as suggested in the plan, on private � the city should make land available, where lands which are compatible with public sector reasonable and in the community interest, for improvements and recommendations; public and/or joint public/private development which is in the community interest. The private sector should assemble reasonable development packages which respond to the � The city should provide public improvements and economic market indicators of Haines and are services in conjunction with and to facilitate compatible with community planning recommenda- private development which is in the community tions; interest. Such improvements include: 0 The private sector should participate in and be responsible for the quality of development and the relationship of that development to the Special Design District guidelines. 75 SUMMARY OF MANAGEMENT ACTIONS 9 The city should establish a Development Review Council, appointed by the Mayor and representa- City of Haines. tive of each special district, the city, and community interests. � Adopt a contemporary Land Development Code; The Development Review Council will act as an advisory board to the Planning Commission on matters specific � The city should establish special design dis- to the AMSA. The Development Review Council will tricts, by ordinance, which identify and organize coordinate special district interest groups, owners common development interests and objectives, co- associations,, development corporations and individual ordinate public and private development efforts, development efforts regarding land use, physical and establish design policy and guidelines. design and adjacent use relationships. These districts are as follows: SDDI: Small Boat Harbor/Mission Preserve/ A technical review committee should be established to provide assistance to the Development Review Council Museum in matters relating to engineering, architecture, site SDD2: Tlingit Park/Lookout Park/Cemetery design, performance standard criteria; this committee could be assembled on request to arbitrate difficult decisions on matters in conflict. SDD3: Transition District SDD4: Upper Fort Seward 9 the city should establish a visitors bureau with a full time paid staff secured by a variety of SDD5: Lower Fort Seward Influence Area funding sources. These sources could include but are not limited to a transient bed tax, the city The design guidelines are discussed in General Fund, and the Division of Tourism grant each Special Design District as descrip- program. tive te%t. 0 the city should undertake an updated comprehen- sive plan for the City of Haines which includes a incorporate the AMSA into the Land Development downtown improvement component. Code as a new zoning district; the private sector should support, through o after additional community review, adopt the funding and personnel, the City of Haines visi- design guidelines for the Special Districts as tors bureau. city planning policy; e reinforce the upper Fort William H. Seward Public/Private Management. Special Design District as an historic district; 0 Establish a Local Development Corporation; e establish the lower Fort William H. Seward Special Design District as the Fort Seward * attract outside investors with Investment Tax Influence Area, aimed at preservat n through Credits for the rehabilitation of significant adaptive re-use, economic development, new structures; construction and overall design compatibility with Fort William H. Seward; 9 explore a SBA 502 Loan Program using a Local Development Corporation to: � survey and record all historic buildings in commit small business enterprises to space, Haines. creating $500,000 in loans per small business; � develop a master list of accessible design assemble a number of small businesses to professionals (architects, urban planners, increase the scale of the loan; landscape architects) capable of serving on a develop 50-100% of a given block or blocks technical -review committee in the role of arbi- along Beach Road in the lower Fort Seward trators and negotiators when conflicts arise; Special Design District. this is not a permanent on-going body; 76 a The City of Haines and the owners' association for the upper and lower portions of Fort William zonino H. Seward should undertake a detailed needs analysis study for a Special Education Facility. On August 19, 1982 the City Council of Haines approved This facility should be attached to a university the new land Development Code proposed by the Wicker- system, either a university level degree program sham Alaska Corporation and modified and revised for or a community college program, and should be approval by the City of Haines. The Area Meriting separate and distinct from existing available Special Attention has been designated as a zoning programs in the region and state. Suggested district within the Land Development Code describing parameters for such a needs analysis should AMSA in terms of the Fort William H. Seward Signif- include but not be limited to the following: icant Structures area, the Fort William H. Seward area of influence and the waterfront area. The designation University and/or community college administra- of Special Design Districts within AMSA to direct and tion; influence development decisions is an integral part of non-competitive with local, regional and the overall management role of the new code. state programs, existing or proposed; The coordination of both on-going planning efforts, AMSA study and the Land Development Code, by the City concerned with visual arts, cultural and of Haines is a significant early implementation theatre arts programs specific to the area and success for the city. existing-facilities; The zoning map illustrated below represents a signif- marketable to local, regional, state-wide and icant change in the City's approach to land use lower 48 participants and university programs management. based on the national and state festivals already planned; based on a curriculum session length ranging from two weeks to nine months; special emphasis should be given to two week through three month programs attracting students, teachers and .professionals having available vacation per- iods; mutually benefiting side trips to other South- east Alaska cultural and educational programs and facilities should be considered as an r integral part of the program. C C W sa d zoning .77 Parade Grounds Landscaping and Parking areas (not to be completed separately); e Barracks Promenade from Beach Road to Fort Seward Road, involving a combination of improved service road/pedestrian way on City property and a stepped plaza on private lands; e landscaping along Soap Suds Alley greenspace; * information signs; o pedestrian lighting; * common off-street parking utilizing portions of publicly owned alleys and private property; 9 cooperative snow removal. OVERVIEW OF FUNDING TOOLS SUMMARY OF DEVELOPMENT PRIORITIRR Federal Resources. Priorities for project-s in areas owned or leased by the City of Haines include the following: Funding resources programs are available from the Small Business Administration (SBA), Farmers Home Tlingit Park Cemetery Retention Wall and Stairs; Administration, HUD, EDA and Coastal Zone Management. Several of the programs are loan programs and others Tlingit Park Cemetery Restoration; are grant programs. While funding is limited, federal programs still offer potential assistance over the Waterfront Pedestrian Way, including Small next decade. Viewing Platforms, Phase I: at Small Boat Harbor; SBA's 502 Program, Loans to Local Development Compa- nies (LDC) Lookout Park Waterfront Recreation Area; The 502 Program, authorized under Section 502 of the Waterfront Pedestrian Way, including Small Small Business Investment Act of 1958, is a program Viewing Platforms, Phase II: From Lookout Park which permits the SBA to make loans to state and Local to the Port Chilkoot Dock; Development Companies (LDC's) for use in assisting specific small businesses. The SBA may lend up to e Fort William H. Seward Waterfront Park and $500,000 for each small business that is to be Parents-Watch/Visitors Platform. assisted. For example, if Haines created a Local Development Corporation, and intends to develop a Projects involving the City of Haines and the private project which would incorporate space for six separate development sector are dependent on more time vari- small businesses, SBA would be authorized to loan or ables due to market, ownership and investment factors. guarantee loans up to a maximum of three million As private development projects are assembled and dollars. This program, therefore, would offer a begin planning and schematic design stages, the timing significant latitude to the HDC in their efforts to of joint public-private improvements within the AMSA undertake relatively large-scale projects. The 502 can be specifically prioritized. Some of these Loan may be used to help small firms to construct, projects include: modernize.. or expand their businesses. 78 The Haines Development Corporation could be organize, In the last two instances, with direct participation and controlled by individuals who reside or do busi- from the SBA, the loan interest rate would be at a ness in the community; however, in no case may owner-- level of below market interest rate. Though these ship and control be less than 75% of local business- funds are limited, they are available, and with men. Also, no more than 25% of the ownership or continued effort SBA will provide the direct assis- control of the HDC may be held by a single individual tance. Typically, the legal and reasonable current or his or her affiliates if he,or she and affiliates rate will be permissible on the bank loan. At this have a pecuniary interest in the project to be devel- time there is a ceiling on SBA-guaranteed bank loans. oped or by the holder of any interest in a small The maximum maturity for any of the above-described business being assisted. In other words; the HDC loans is 25 years plus the estimated time required to could be a profit or nonprofit corporation comprised complete the construction, conversion, or expansion. of no less than 25 concerned businessmen interested in Usually a lien on the fixed assets acquired with loan promoting and assisting the growth and development of proceeds is used as the collateral to reasonably small businesses in the community and Fort area. assure repayment of the loan. Loans made to the HDC may be used to help the company buy land, build a new facility, convert an existing Farmers Home Administration, Business and Industry plant, or construct visitor-oriented retail space, Loan Program, and Community Facility Loans and Grants provided the project will assist specific small businesses or in the case of a retail center, several The Farmers Home Administration offers two programs small businesses. that are of interest to the City. The first program is the Farmers Home Administration Business and Industry Loan Program. Generally, this assistance is The Haines Development Corporation may be used effec- provided as a loan guarantee whereby FmHA contracts to tively in several ways. For example, it may be the insure reimbursement to the lender an amount not to developer in a downtown commercial project or it exceed 90% of principle and interest. Lenders are could, in cooperation with the City, acquire land and responsible for making and servicing the loans. In buildings in the Fort area for the purpose of provid- some special cases where a guaranteed loan is not ing new, expanded, or improved space for local small available, FmHA may directly make and service the business enterprises. It could then enter into loan. long-term leases, purchase-lease agreements, or actually sell the development to these identifiable Any legal entity, including individuals and public and small businesses. A significant limitation that must private organizations, may borrow through the Business be considered when using the SBA 502 program is that and Industry Loan Program of FmHA. The basic purposes specific identifiable small business enterprises must of the Business and Industry Loan include developing be committed to occupying the space prior to financing or financing business or industry, increasing employ- by the HDC. ment, and controlling or abating pollution. Within this framework, uses include but are not limited Basically, there are four alternative methods for to: obtaining SBA assistance in the above-described loans through the HDC: Financing business and industrial construction, A bank loan guaranteed by SBA up to 90% of the conversion, acquisition, and modernization. loan or $500,000, whichever is the lesser per Financing the purchase and development of land, small business. easements, equipment, facilities, leases, machin- ery, supplies or materials, and custom feed A bank loan with immediate participation by the lots. SBA. Supplying working capital and funds. � A bank first-mortgage loan and SBA direct second- The 90% guarantee is an assurance to protect the mortgage loan. investor and may cover up to 90% of the principal and � Direct participation from SBA. interest of the guaranteed note. The guarantee fee will be one percent of the principal loan amount multiplied by the percent of guarantee, paid one time 79 only at the time the loan note guarantee is issued. the City would find this financing mechanism more It is important to note that the applicant will be desirable than a G.O. Bond issue. required to provide sufficient cash or other assets to provide reasonable assurance of a successful project. HUD's Community Development Block Grant Program, Small Ordinarily a minimum of 10% equity at loan closing City Program and Section 312 Rehabilitation Financing will be required. The FmHA Business and Industry Loan Program Program has a final maturity that does not exceed 30 The Small Cities Program is an improvemen years for land, buildings, and permanent fixtures; 15 t of HUD's years for machinery or equipment or the life of the original discretionary grant program in which many machinery or equipment, whichever is shorter; and small cities now participate. It is a program which seven years for working capital. Interest on all permits the use of 100% federal grant resources for loans will be due at least annually after the loan is the purpose of improving the overall community envir- closed. onment, principally to the benefit of low- and mod- erate-income citizens. The program is often used by For Guaranteed Loans the interest rate may be fixed or cities in improving ahd rehabilitating one or more of variable and will be determined by the lender and the its more deteriorated residential neighborhoods. The borrower, consistent with the market rate. The resources can be used to acquire dilapidated buildings interest rate on loans made by Farmers Home Admini- and either demolish or rehabilitate some for the stration will be computed on cost of treasury borrow- benefits of low- and moderate-income residents. It is ing plus an increment to cover administrative costs- also used to improve existing community facilities including water, sewer, streets, sidewalks, alleys, Several alternative methods could sensibly and prac- curbs and gutters, etc. More importantly, other tically be undertaken with respect to the FmHA Bus- activities that may be supported are Waterfront iness and Industry Loan Program. For example, the HDC Redevelopment, including such activities as: pedes- could be the recipient of an FmHA Direct or Guaranteed trian amenity improvements; land acquisition for Loan and, similar to the effort described in the parking or new commercial construction; improved preceding SBA 502 program description, the HDC could circulation; and other economic development activites, be the developer on behalf of an identified business including the assistance of the Haines Development or series of businesses within the lower Fort area. Corporation in the encouragement of .new commercial Again in this case, as with SBA, FmHA would require a development opportunities and expansion of existing clear commitment of the businesses to be involved in commercial enterprises. The Small Cities Program may the project. This program is appropriate for both be-used for providing the necessary seed money to the industrial and commercial efforts. FmHA and SBA have HDC for the purposes of such redevelopment or expan- sion. The Small Cities money may also be used for an agreement that where the proposed loan meets the undertaking necessary redevelopment studies, market guidelines of SBA, SBA would be the agency with whom feasibility, parking feasibility, and final urban the HDC deals. The major advantage of using the FmHA design of necessary improvements to the waterfront program is that there are no limitations on the size area# It must be remembered, however, that with a of business to be assisted. Small Cities Program, the emphasis is on directly and principally benefiting low- and moderate-income The second program offered by Farmers Home Administra- citizens. Programs, particularly those without a tion, and of significant benefit to the city, is the housing component, are unlikely to receive assistance Community Facility Loan and Grant Program. This under the program. program is directed to assisting local communities in the development and installation of essential commun- ity facilities for maintaining, expanding and improv- HUD Community Development Block Grants are now under ing vital community facilities. Particular attention the authority of the state. The State of Alaska is and priority are given projects which will benefit the utilizing a technical assistance grant to reorganize local community in maintaining or expanding employment the program. Due to commitments of $.5 million opportunities for local community residents. This dollars each to Kodiak and Juneau by the federal program activity would be directed to the provision of government for FY 81, 82, 83, only $315,000 remains improved and expanded community facilities servicing available in the Small Cities Program for FY 83. the Haines waterfront tourism and recreational areas. Haines should prepare funding applications for FY 84. This loan would represent an encumbrance upon the Future grant amounts are unknown and cannot be pro- City's debt limitation. It is) however, unlikely that jected at this time. 80 HUD's Section 312 Rehabilitation Financing Loan Renovating inner city buildings for special Program is a program that is available for the purpose development purposes. of providing low-interest loans for rehabilitation of both residential and commercial properties. It is Building or improving publicly-owned recreational only available to property owners in cities that are facilities to build up the area's tourism in.- actively participating in the HUD Community Develop- dustry. ment Block Grant Program. In most cases, the 312 Loan Program is available for both residential and commer- Improving the appearance or efficiency of public cial rehabilitation activities. The 312 program is a facilities in rundown congested areas. program which provides interest loans to owners of residential or commercial property for the purpose of These types of projects are evaluated by the amount rehabilitating both the interior and exterior of and quality of the socioeconomic benefits that can be residential or commercial structures. In the case of expected in return for federal investment. In many' non-residential (commercial) loans for structural cases, the EDA Public Works Assistance Program can rehabilitation, the maximum total loan that may be effectively be used as a mechanism for improving the made to the borrower shall not exceed the lesser of: vitality and competitiveness of an industrial project. the rehabilitation cost, $500,000, or 80% of the value This EDA program may be effectively used to provide of the property after rehabilitation. It is important streets, sewers, water, and other necessary public to note that a non-residential loan may not be used to facilities directed toward improving economic develop- pay off existing debt. The Rehabilitation Program may ment opportunities. The EDA has also been slated for also be used in downtown areas for Mixed-Use Loans elimination by the new federal administration, and its which would include those structures which incorporate future is uncertain. both commercial and residential uses. This would permit an owner to improve not only his store but any second-rate apartment units that may be in place at Another EDA program that would provide practical the given interest rate. assistance to the community is the Business Develop- ment Program. The Business Development Program is a EDA's Public Works Assistance Program and Business basic tool that EDA uses to help private business Development Program preserve existing employment or to expand or locate new facilities in areas designated by EDA as eligible This program is funded until the end of FY82 (three to receive such assistance under the Public Works and months left) and may be budgeted at a lower level. Economic Development Act. Under the Business Develop- Until a clarification us nade by Congress, this is ment Program, EDA may provide direct loans to: a presented with a "maybe" label. Many small cities, as business enterprise which may be a sole proprietor- local units of government, are "growth centers" within ship, partnership, or corporation; a nonprofit organi- an Economic Development District and are eligible to zation or association; or a municipality. In addi- participate in the EDA Public Works Assistance Program tion, EDA may guarantee loans and leases to the in a 60% (or more) grant program directed toward above-listed entities. Typically, EDA limits their funding such projects ast maximum financial assistance for any particular project to an amount of $10,000 of investment per job created or served. Therefore, unlike SBA and FmHA, the Business Development Program of EDA uses the Making land suitable for industrial or commercial $10,000 per job created as an investment limitation use by providing utilities, access, and site upon their involvement in an industrial or commercial preparation. development project. However, again unlike SBA, the EDA Loan Program does not place a limitation on Building facilities and providing equipment for business size as a criteria for program participation. job training programs. Therefore, the us-e of the EDA program permits a greater degree of flexibility in both loan guarantees Improving public facilities at airports and and direct loans to business and industry in the harbors. project area. The following activities are permis- sible under the Business Development Program: Providing in very poor communities the basic infrastructure that is prerequisite to initiating Direct fixed asset loans are provided for land or stimulating economic development. acquisition and site preparation, the purchase or 81 construction of buildings, and the acquisition The State of Alaska Division of Tourism has two loans and installation of machinery and equipment. EDA available through the State of Alaska Convention is willing to take a subordinate security posi- Incentive Program. The first is a $4,000 per commu- tion which, when combined with the long-term nity limit for tourism promotional materials and repayment and usually low interest rate, makes travel. The City of Haines, Alaska Visitor Associ- these loans attractive to other lenders and ation and Chamber of Commerce are all eligible recip- investor participants. ients. Direct working capital loans are made only if Skagway currently has $18,000 in loans to promote other sources of working capital are not avail- tourism throughout the region, state and out-of-state. able and there is evidence that the loan will The Division of Tourism is encouraging southeast have sufficient economic impact on the distressed communities to form a SE regional organization to area. Such loans are available to businesses jointly promote the area, coordinate conferences, that have experienced or may be reasonably conventions and visitor industry activities in a foreseen to experience temporary but severe manner benefiting more than one community. problems involving actual or potential job loss Coastal Zone Management Program (CZM) is in its last for reasons including, but not limited to, the year of federal operation. The priorities in CZM are closing of federal installations, environmental to finish on-going programs, complete plan documents orders resulting in plant shutdowns, and federal and support initial implementation efforts. Actual energy policies. construction project funding is unlikely through CZN. More information will be forthcoming when the state Fixed asset loan guarantees are available to budget is signed. private lending institutions and provide eligible applicants with fixed asset financing. These Direct State Appropriations is a significant means of guarantees may not exceed 90% of the outstanding acquiring grants. Members of the legislature need to balance owned to the financial institution. be contacted directly regarding special projects. Working capital loan guarantees not to exceed 90% Economic Recovery Tax Act of 1981 of the outstanding balance are available to private lending institutions to provide working This act (Public Law 97-34) creates significant new capital financing. incentives to encourage the preservation and reuse of historic buildings. The law basically repeals the Lease guarantees are available to guarantee existing preservation tax incentives and replaces them rental payments of leases for buildings and with a 25 percent investment tax credit. It also equipment, except that no such guarantee sh 'all replaces the traditional system of depreciating real exceed 90% of the remaining rental payments property over its useful life with an accelerated cost required by the lease. recovery system allowing investments to be recovered in 15 years. The new law also repeals the demolition The initial step the community would take in seeking provision enacted in the Tax Reform Act of 1976 that EDA assistance is to arrange a meeting between their denied accelerated depreciation for a building con- EDA Business Development representatives and represen- structed on the site of a demolished historic build- tatives of the HDC. If the project is in harmony with ing. Federal income tax deductions are denied for the current guidelines, then a preapplication. confer- demolition costs or losses associated with historic ence would be held. The EDA program is predominantly buildings. directed toward the private firm; however, the HDC should play a major role in directing their business- Administration. men to the appropriate program necessary to improve their position. Therefore, as in the SBA and FmHA o National Park Service (NPS) programs, the HDC becomes a major element in assisting local businesses to improve their market position and o U.S. Department of the Interior obtain potentially substantial financing advantages. It should be re-emphasized that this program and 0 Internal Revenue Service (IRS) agency has been proposed for elimination by the current administration. 0 U.S. Department of Treasury 82 Highlights. in the case of certified historic structures, the ITC can be deducted f rom taxes owed and, � Only "qualified" rehabilitation is eligible and the entire cost of rehabilitation can be qualification should be determined prior to depreciated. When coupled with the additional commencing work; 5-percent credit, the tax savings are substan- tial. � effective I January 1982; 9 Recapture: � tax credits are as follows: if a rehabilitated building is held more than 5 15% for structures at least 30 years old; years after rehabilitation there is no recap- 20% for structures at least 40 years old; ture of ITC; 25% for certified historic structures; if a rehabilitated building is disposed of less than one year af ter going in service, all of � conditions for qualifications: ITC is recaptured. structure has been substantially rehabilitated; Years Held % Recaptured structure was in use prior to beginning the rehabilitation; less than 1 yr. 100 the building retains at least 75% of the 1-2 yrs. 80 existing external walls; 2-3 yrs. 60 The ITC (Investment Tax Credit) is deducted from the amount of taxes owed in contrast to a deduc- 3-4 yrs. 40 tion, which reduces a taxpayer's income subject to taxation; 4-5 yrs. 20 � Eligibility for ITC includes the following: 5 or more 0 ITC is available to both depreciably non-resi- Who gets the ITC? dential and residential buildings; significant incentives exist for rental housing owner(s) of eligible buildings; in historic buildings; an owner when a building is leased and used by a tax exempt organization or governmental owner-occupied taxpayer's certified building unit such as the University of Alaska; can take ITC for income-producing part of building; a lessee when lessee incurs costs, the rehabil- itation is complete and the remaining term of the rehabilitation expenditures must exceed the lease is not less than 15 years. greater of 1) the taxpayer's cost of the building plus capital improvements less depre- ciation (adjusted basis in property); 2) or Tax Preference $5,000, within a 24-month period; taxpayer investors in the rehabilitation are 1 60-month period to meet rehabilitation test not subject to a minimum tax penalty; allowed when completion is set in stages based on architectural plans completed before the coupled with Straight-line Depreciation, ITC rehabilitation begins; for qualified rehabilitation eliminates recap- ture problem associated with earlier tax incentives; 83 EXAMPLE 1: OFFICE & APARTMENT BUILDING EXAMPLE 2: HIGHRISE BUILDING Acquisition Cost $150,000 Acquisition Cost $1,200,000 Land $ 40,000 Land $600,000 Building 110,000 Building 600,000 Rehabilitation expenses 125,000 Rehabilitation costs 1,500,000 1st year cost recovery Limited partners (120 @ $10,000) 1,200,000 ($110,000 + $125,000) - 15 years 15,667 Total project costs 2,700,000 1981 tax liability (based on adjusted gross income over cost 1982 ITC (Total) 375,000 recovery & other deductions) 30,000 1982 ITC for limited partners 367,500 25 percent ITC ($1.5 million x 25 percednt) - $125,000 x 25 percent 31,250 x 98 percent ITC limit in 1983 29,500 1982 Deduction for easement donation 568,000 $30,000 - $25,000 = $5,000. for limited partners: $25,000 plus (90 percent x $600,000 x 98 percent 5,000) = 29,500 Limited partner's tax treatment ITC carried back to 1980 1,750 ITC $31,250 - $29,500 $367,500 - 120 3,063 Sale after 4 years 350,000 Tax savings due to ITC Easement donation deduction 4,900 Cost recovery deductions over 62,668 $588,000 - 120 4 years ($15,667 x 4 years) Tax savings due to easement 2,450 Adjusted basis of building + land 212,332 donation: $4,900 x 50 percent ($150,000 + $125,000) - $62,668 bracket Net profit for tax purposes 137,668 Total Tax Savings Ist year $350,000 - $212,332 $3,063 + ($4,900 x 50 percent) Capital gains tax at 20 percent 27,534 Reduction in $1,200,000 Basis attributable to $137,668 x 20 percent gift of $600,000 easement Taxes paid due to recapture of ITC 6,250 Adjusted Basis "Before" easement gift: $31,250 x 20 percent Land $600,000 Buildings 600,000 Source: Preservation News Supplement November, 1981. Adjusted Basis "After" easement gift: Land 200,000 Buildings 400,000 Source: Preservation News Supplement November, 1981. 84 Standards for Rehabilitation. (8) Every reasonable effort shall be made to In the words of the 1981 law, "consistent with the protect and preserve archeological resources affected historic character" of the structure and the district by, or adjacent to, any project. in which it is located. (9) Contemporary design for alterations and addi- (1) Every reasonable effort shall be made to tions to existing properties shall not be discouraged provide a compatible use for a property that requires when such alterations and additions do not destroy minimal alteration of the building, structure or iste significant historical, architectural or cultural and its environment, or to use a property for its material, and such design is compatible with the size, originally intended purpose. scale, color, material and character of the property, (2) The distinguishing original qualities or neighborhood or environment. character of a building, structure or site and its (10) Wherever possible, new additions or alterations environment shall not be destroyed. The removal or to structures shall be done in such a manner that if alteration of any historic material or distinctive such additions or alterations were to be removed in architectural features should be avoided when pos- the future, the essential form and integrity of the sible. structure would be unimpaired. (3) All buildings, structures and sites shall be The Secretary of the Interior's Standards for Evaluat- recognized as products of their own time. Alterations ing Structures within Registered Historic Districts. that have no historical basis and which seek to create The NPS uses the "Standards for Evaluating Struc- an earlier appearance shall be discouraged. tures within Registered Historic Districts" to deter- mine whether a structure within a registered historic (4) Changes that may have taken place in the course district is of historic significance to the district. of time are evidence of the history and development of The SHPO also uses these standards to make certifica- a building, structure or site and its environment. tion recommendations to the NPS. These changes may have acquired significance in their own right, and this significance shall be recognized (1) A structure contributing to the historic and respected. significance of a district is one which by location, (5) Distinctive stylistic features or examples of design, setting, materials, workmanship, feeling and skilled craftsmanship that characterize a building, association adds to the district's sense of time and structure or site shall be treated with sensitivity. place and historical development. (6) Deteriorated architectural features shall be (2) A structure not contributing to the historic repaired rather than replaced, wherever possible. In significance of a district is one that detracts from the event replacement is necessary, the new material the district's sense of time and place and historical should match the material being replaced in compo- development; or one where the integrity of the orig- sition, design, color, texture and other visual inal design or individual architectural features or qualities. Repair or replacement of missing archi- spaces have been irretrievably lost; or one where tectural featrures should be based on accurate dupli- physical deterioration and/or structural damage has substantiated by historic, physi- made it not reasonably feasible to rehabilitate the cation of features, building. cal or pictorial evidence rather than on conjectural designs or the availability of different architectural (3) Ordinarily structures that have been built elements from other buildings or structures. within the past 50 years shall not be considered (7) The surface cleaning of structures shall be eligible unless a strong justification concerning undertaken with the gentlest means possible. Sand- their historical or architectural merit is given or blasting and other cleaning methods that will damage the historical attributes of the district are consi the historic building materials shall not be under- ered to be less than 50 years old. taken. 85 I - I @ 18 14lua '%J-' I @l I -1 3 b66 I I I I I I I I I I I I I I .1 1 I I