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Houghton k HT 168 H6 W38 1982 OUM GRANT MICHIGAN ONA-80-AA-H-CZ157 SUBTASK C1 Of 0 michigan U. P. john tir engineeneng roa,,, nd J01fansen architect i associa s architect This document was prepared in part through financW assistance provided by' the Coastal Zone Mana? ,ement Act of 1972 projec 100 0"ae adm;nistered by the Of fice of Coastal Zone Management plannin hou9phton?M1. 49931 National Oceanic and'Atmospheric Administration tea' 9064826740 rs c U a t n n r P" gd a, 0 r jo 0 0 h h g n a an ura DEVELO WATERFRONT PMENT PLAN ty, h Ughto u Jt4S te arch ro ct1 0 @t,,D @ia je rtage j 9 0 Phton'n inn ng Ug t M 9 adl earn 64 2 7 thru the year 2000 k 7 beginning o6tober 1982 -CREDITS -INDEX The City of Houghton Waterfront Development Plan was prepared by the Houghton based planning team of John Roger Johansen, Architect, and U.P. Credits Engineering and Architectural Associates, Inc., under the direction of Section 1. Introduction the City of Houghton Planning Commission: Section 2. Inventory Lee Hauswirth, Chairman Stephen Karpiak, Secretary Section 3. Analysis-Problems Gerald Bond Section 4. Anal ysis--Opportu nities Raymond Kestner Section 5. Graphic Plan/Projects, Tom Lepisto Section 6. Implementation/Conclusion Dorothy Love Appendix Donald Salo 1. Data Maps Gertrude Smith 2. Signage Ordinance Ray Wiitanen 3. Color Pallet 4. Sands Zoning Recommendations 5. References The Planning Comission acted on behalf of the Houghton City Council: Gerald Bond, Mayor 6. Photo Log Andrew McCormick, Mayor Pro-tem 7. Waterfront District Ordinance Anthony Benaglio 8. Projects List Martin Feira Charles Isaacson Tom Lepisto John Mcrae The work of consultants was coordinated thru the City of Houghton Admini- stration: Raymond Kestner, Manager Scott MacInnes, Assistant Manager and Project Coordinatoe Kurt Kuure, Clerk/Treasurer The project has been funded by the City of Houghton with the assistance of a grant from the Michigan Department of Natural Resources; Michael Kessler. Project Coordinator Coastal Management Program Land Resource Programs Division INTRODUCTION The ,City of Houghton is an agressively developing community in Michigan's S Upper Peninsula situited along the south shore of P6rtage Lake. The Lake is part of the international shipping route known as the Keweenaw Waterway, that physically separates the Keweenaw Peninsula from the main- j4V land of the U.P. With a 1980 census population of 7,512, Houghton is the largest city in Houghton County. It is the home of Michigan Technological University dty of -0 W (MTU) and the Houghton County Offices are located in the center of the city. These are the largest employers in the area. The City is presently one of only six regional growth centers located in the Upper Peninsula. Houghton was established during the copper mining boom of the 1850's. It soon became an important industria I /commercial dock; importing coal smelters and exporting copper ingots to the world. Two rail- t, i'@,- to fire the roads built ma or yard facilities in Houghton along the lakeshore. In MVA-,Tr-- 1874 a bridge to Hancock was constructed from the center of Houghton. Highways US-41 and M-26 meet at the bridge thus funnelling all area traffic through the City. In 1958 the State replaced the old swing bridge with the present Portage Lake Lift Bridge. The mining activity in the Copper Country peaked around the turn of the century and since that time has experienced a steady decline. The last active mine on the Keweenaw Peninsula closed in 1968. P IT is, BREWERY PARK AIN- W. 3. The major remaining visual element of the mining days in Houghton is the waterway brings every visitor to the Keweenaw Peninsula into:the the- stamp-sand that was dumped into Portage Lake during the 75 years heart of Downtown Houghton. of millipg_ operations of the Isle Royale Mining Company. This 200 acre waterfront area forms a broad peninsula at the north-east end of the As with most municipal waterfront areas the Houghton shore of Portage City. Known as the Isle Royale Sands, the majority of this area is un- Lake was developed as a commercial/industrial alleyway with very little developed. consideration given to visual integrity or general public use. Consequent- ly, the many architecturally significant buildings that were constructed In the late 1960's the7 City of Houghton, with funding from HUD's 701 were built without emphasis to the Lake. The key to successfully re- program began the preparation of a Future Land Use Development Plan orienting the physical impact of Houghton is redevelopment of the entire for the Houghton-Hancock region. The final document was published in Waterfront Area with an emphasis on projects that create direct public June, 1972. The City of Houghton realizing that the plan provided a contact with the Lake. sound approach for improving the economic base of the community has aggressively pursued the recommended strategy. An important part of The current thrust of redevelopment in the City is aimed directly at the the plan pertained to the development within the Central Business District tourism market. This year two major fast-food chains have opened outlets (CBD) . in the CBD. The City's largest motel is expanding and a new 50 unit motel/restaurant is under construction on the east end of Downtown. The City, recognizing the public and private commitment existing in the A 120 unit convention center is also being planned for a location on CBD, placed a high priority on the revitalization of the District including the Waterfront, immediately west of the bridge. All three of these pri- the adjacent lakeshore. vately funde .d developments place a major emphasis on Portage Lake. Since 1972, this commitment has resulted in over 5 million dollars in To encourage and establish a direction for development along the Water- public improvements. Lake Street has been extended and reconstructed. front, that is in the best interest of all the people, the City of Houghton A parking deck has been built., Parking and pedestrian areas have Planning Commission authorized the preparation of this Waterfront Develop- been established along Shelden Avenue and a new municipal Transit Center ment Plan; hereinafter referred to as The Plan. has been built as a focal point for the downtown. Two major streets have been covered to facilitate access to and from the CBD. The Plan consists of six Sections and an Appendix. The initial thrust of Houghton's redevelopment plan was directed mainly Section 1 of The Plan is this introduction. toward @ccommodating the major expansion projects undertaken by the Section 2is an inventory of existing conditions. Section 3is a discussion of problems identified from information University during the sixties and seventies. During the 20 year period contained in Section 2. MTU invested over -260 million dollars in redevelopment construction i,@@Ie_- Section 4is discussion of opportunities presented by combining menting the campus master plan. the problems listed in Section 3 with the assets indicated in Section 2. Very little emphasis has been placed directly on improving the 4 miles Section 5is the graphic plan indicating the location of the various of Waterfront that remain Houghton's most valualAe potential resource projects recommended in The Plan. A separate listing of for capturing a share of the lucrative tourist market. Tourismhas been projects is also included. identified as the Copper Country's greatest potential industry. (See Appendix). As indicated earlier the location of the only bridge over Section 6 is a series of- guidelines -and recomendations for the implementation and the concl 'usion. The Appendix is located at the end of The Plan. To facilitate the preparation of The Plan a Project Area was established as indicated on the Key map below. city of hamock city of hoLqVw Pons" h** WATERFRONT -IT -DISTRICT IS -SHADED AREA The Plan recommends that this area be established by ordinance as The Waterfront Development District (See Appendix). VENTORY This Section is an inventory of existing conditions within the Waterfront Development District. * It is divided into nine categories. Maps for each category are included in the Appendix and are meant to accompany the following narratives: a. Land Contours bt Land Use c. Structures d. Historic Sites e. Zoning f. Ownership g. Vehicular Traffic h. Parking i. Utilities JV c" KEY Q7 2 IN 16f= COPPER RANGE DEPOT In addition to the map prepared for Item C., the Waterfront Development the current use orientation. Light industry, warehousing and wholesale Plan includes a photographic log prepared in the spring of 1982. This distribution are the. primary private land uses here. The public use log indicates the exterior physical condition of all the structures within of the waterfront in the CBD is relegated to a small parcel between the the District at that time. railroad tracks and the lake, north of the parking deck, and the ends of the north-south streets. The original copy of the log is available for public inspection at the The land use composition of the waterfront area adjacent to the ICBD is City Hall. Copies of photographs contained in the log will be provided helpful in servicing the downtown. The same composition, however, lacks upon request. both retail and public develbpment thereby discouraging , active use The information contained in this section is analyzed in Section 3 and of the water by the poblic. (Even the dock facilities are not currently forms the basis for the Waterfront Development Plan presented in Sections used. ) Only the National Park Service, with its o perative dock and public 4 a'nd 5. access, actively and appropriately uses its central Houghton shoreline. An area immediately east of the Park Service property has been recently a. Land Contours The City of Houghton is situated on the north facing hillside on the shore developed with the addition of two multi-family units and a private tennis of Portage Lake. The terrain is often as steep as 14-16 percent, in court. a general north-south direction. Many of the original slopes in Houghton have been regraded, especially those along the main east-West thorough- The Hamar-Quandt 41 Lumber Company building uses approximately I acre fares: US-41, M-26 and the railroad beds, because of the steep grade immediately adjacent io the Soo Line Railroad yard. the town has developed in an east-west direction. The Soo Line Railroad owns approximately 1500 feet of shoreline along As a result of early development, much of the land immediately adjacent its old railroad freight yard. The area is sitting idle, because rail to the Lake has been filled, specifically the area between the Copper service to Houghton has been abandoned. The railroad property extends Range Depot and Brewery Park, west of the bridge, and the area from between Hamar-Quandt and MTU and includes approximately six acres. the Soo Line Depot to Michigan Tech, east of the bridge. Michigan Tech, with its heating plant, fuel storage and service facilities A sharp drop-off'exists adjacent to the shoreline between the Copper located along the waterfront, makes appropriate use of that part of its Range dock and the Isle Royale National Park headquarters. The water- lakeshore. The lake bottom along the shore next to the heating plant front was historically. used for industrial/commercial activities and the parking lot was recently dredged in order to provide docking facilities deep mooring area was maintained for shipping. Although cargo shipments for large lake freighters off-loading fuel. are no longer made by boat, the facilities for commercial boat docking are still available. The Corps of Engineers continues to maintain the The remainder of the University's shoreline from the heating plant to channel in the Keweenaw Waterway at a minimum depth of 27 feet for Prince's Point is undeveloped and is quite steep. navigation purposes. The Isle Royale Sands area has been haphazardly developed with limited b. Existing Land Use industrial and residential efforts. The City of Houghton water system Presently, the most intensive use of Houghton's waterfront occurs in the well field is located on a 10 acre parcel on the Sands. However, the area immediately adjacent to the CBD. The traditional use of waterway majority of the Sands area remains undeveloped and unvegetated. 600 as an industrial alley during the copper mining days, has established feet of canal was excavated into Sands as part of the existing residential plat. The shoreline west of the lift bridge consists of 6800 feet of former Copper The buildings owned by MTU were not included in the log, but they were Range Company property. A portion of this area, the Copper Range Rail- all judged to be in excellent condition. road yard, w as recently cleared and is awaiting further development. A large concrete deep-water dock still exists in this area along with Since there are no recommended architectural standards or guidelines a large number of supporting poles 2-3 feet above the waterline. A broad- presentl 'y in use, several pedestrian-level facades in the CBD have been side dock adjacent to the Copper Range Depot remains in fair condition. insensitively altered. In most cases, however, the upper level facades The City of Houghton owns the most westerly 1500 feet of shoreline in have retained their original character. During the past few years, sev- the Waterfront Development District. This approximately 40 acre parcel eral building exteriors have been improved, but again without the benefit is u ndeveloped. of a general theme. Within the CBD the City owns three small park areas and two small green Signage has developed over the years with a tendancy toward bigger areas at each entrance to the downtown, sector. -The.majority of the CBD and brighter signs, resulting in an overcrowded, cluttered look on Shelden is privately owned and operated as commercial property, with some resi- Avenue. A signage ordinance has been under consideration for the past dential rental housing. five years. None is presently in effect. There is also lack of signs indicating the location of the public parking facilities. The shoreline docking for Houghton is deep and ideal for large pleasure boats. However, the existing facilities are not conductive to recreational d. Historic Sites activities due to deterioration and the old industrial atmosphere. A The age and original integrity of many of the buildings in downtown new facility is needed to attract transient boaters. Houghton, particularly those in the CBD, are among the City's prime assets. The following downtown buildings, located within the Waterfront C. Existing Structures and Signage District, are included on the State and/or National Registers of Historic The most important man made visual element in the Waterfront Development Places: District is the Portage Lake Lift Bridge. 1. Houghton Fire Hall (birthplace of MTU) 2. Portage Lake District Public Library (Carniege) Most of the existing buildings in the District are of pre-1930 construction. 3. Douglass House 4. Shelden-Dee Block Although their conditions vary, the original quality of construction, par- 5. Library Bar ticularly that of the early 20th century masonary buildings in the CBD, 6. So*o Line Depot (Richardsonian) has given an enduring significance to the District. 7. Houghton National Bank (Richardsonian Romanesqu@) 8. U.P. Power Company Building - The photographic log of the existing structures reflects the visual exterior 9. Community Building (City Hall) (Archltect'b Office) condition of approximately 210 buildings in the Waterfront Development 10. Copper Range Depot District. 11. Houghton Post Office 12. Hall Building (Engineer's Officei Of the one hundred structures in the CBD, ten structures were determined 13. Foley-Bergdahl Block to be in excellent condition. Eleven were judged to be in deteriorated condition. The remaining buildings are sound, but need some repair Three Historic Register buildings are located immediately south of the and/or maintenance. The buildings judged to be in excellent condition district and have major visual impact upon it. They are: are indicated 6n the existing structures map. The buildings judged to 1. Houghton High School be in deteriorated condition are indicated on the same map. 2. Houghton County Courthouse 3. St. Ignatious Loyola Church Michigan Technological University began in Houghton as the Michigan The Soo Line properties are particularly important, because in addition School of Mines in the late 1800's. In the past 15 years the original to holding 7% of the actual shoreline, the Railroad controls right of way campus has been extensively reconstructed. On the campus only three from the Portage Lake Lift Bridge to the east city limits along approxi- of original buildings remain. The present student enrollment is 7900. mately 70% of the waterfront. The projected maximum enrollment by the year 2000 is 10,000 students. The fifth floor of the new Electrical Engineering abuilding on campus Property ownership as a percentage of total shoreline Is indicated below: contains one of the finest Mineral Museumes in the world. TOTAL W/O AREAS NOW IN PORTAGE TOWNSHIP, In the City of Houghton no historic district has been established and Royale Isles Development 25.8 no historic preservation ordinances have been enacted. . 33.1 MTU 14.7 18.9 Naumkaeg Inc. 12.9 Lakeshore Associates 10.9 10.5 e. Existing Zones City of Houghton 10.9 5.5 Zoning in the Waterfront District is generally intended to maintain existing George Lepisto 8.0 10.3 Soo Line Railroad 7.1 9.1 land use in most areas. In those areas which are currently undeveloped or underdeveloped, zoning is quite flexible and indeed encouraging to National Park Service 2.4 3.1 Hamar Quandt 2.0 2.5 most uses. The designations are: R-I (residential), R-2 (two-family), Spear/Mikkola 1.6 2.1 R-3 (multi-family), B-1 (local business), B-2 (community business), B- Michigan DOT 1.1 1.3 Cohodas-Paoli 0.9 1.1 3 (general business), 1-1 (industrial), RSV (reserve), and MU (mulitple Berman Gundlach 0.7 0.9 use). Houghton/Hancock (SWA) 0.6 0.8 A long R-3 segment, containing most of the Michigan Tech campus, buffers UPPCO 0.4 0.5 R-1 areas to the south of the District from both the campus and the down- town business district. This segment is, in turn, separated from the lakeshore by two reserve areas, which cover most of the actual waterfront between the east end of the Central Business District and the Isle Royale Sands. The reserve designation allows flexibility in land use, although only specific industries (mining, utilities and rail services) have been encouraged. The City's zoning ordinance specifically allows reserve areas to be zoned for more intensive usage. f. Existing Ownership Perhaps the single most important factor which will effect the opportunities for future development is the fact that 90% of the shoreline is in the hands of seven owners. Opportunities for public development, particularly in the less developed east and west shoreline areas, rely on securing ownership, lease, or easement agreements with Royale Isles Developm@_nt7 Michigan Tech, Naumkaeg Inc., Lakeshore Associates, Mr. George Lepisto and the Soo Line Railroad. g. Vehicular Traffic The City of Houghton has recently instituted a mini-bus service with This section will also include the effect on the community from tourists. both fixed route and demand service. One of the fixed routes runs from Visitors not only affect traffic, but also tourist oriented businesses. Michigan Tech to Hancock, and is heavily used by students during poor weather conditions. The three main avenues into the Central Business District of Houghton are US-41 from the south, M-26 from the west, and US-41 from the north. Passenger rail service was discontinued in the 1950's and the Soo Line Visitors to Houghton, landing at the Houghton County Airport or docking freight rail schedule had been reduced to one train a week for the past at the Houghton County Marina, enter Houghton across the lift bridge. few years. All rail service to Houghton has now been abandoned. The bridge is a two level four lane roadway for vehicular traffic with railroad traffic crossing on the lower level only. It is operated by Houghton is the headquarters for Isle Royale National Park and the home the Michigan Department of Transportation. The bridge is raised to allow port and embarkation point for the 150 passenger Ranger 11, the only sailboats and larger ships to pass under the raised span. It was re- passenger ship operated by the National Park Service. painted in 1980 and is well maintained. M-26, west of the bridge, was rebuilt in 1980 as a four lane road. h. Existing Parking The Houghton Canal road was rebuilt in 1981 with paved shoulders on For purposes of this Plan, only the downtown parking is considered. the central part of the CBD is served very well by the existing parking both sides. These roadways provide excellent visual access to the lake. deck, which as parking for 150 cars on the top deck and parking for Montezuma Avenue is a one-way street carrying traffic from west Houghton, 200 cars below. At the present time Shelden Avenue has on-street parking and from the lift bridge, east to Franklin Square. It is a high volume for 50 cars. thoroughfare with limited parking, and it is extremely difficult to cross during high volume traffic. Temporary parking for delivery service is provided in the 200, 300, 400, College Avenue is a two-way street carrying a large volume of traffic, and 500 blocks *of Shelden by newly installed delivery bays. Both the particularly easterly during the morning rush hour and westerly during eastern and western ends of the CBD are poorly served for public parking. the evening rush hour. The roadway becomes four lanes around Michigan .To help alleviate this situation a 10 car parking lot was constructed Tech, but switches back to two lanes east of McGinnis Drive. It divides at the northwest corner of Shelden and Bridge. This lot was built mainly from fill removed during construction of a 20 car lot behind City Hall the MTU campus from off-campus housing and the two largest residence in the Fall of 1981. Additional public parking is also available on the halls, Wadsworth and Coed Hall. Many pedestrian crossings each day north-south streets, which cross Shelden Avenue. create a traffic hazard which is accentuated by high snow banks in the winter. There are several private parking areas within the downtown, which Bicycle riding is & popular and important means of transportation, es- provide parking for customers and employees, primarily during business pecially among students. The City of Houghton recently installed new hours. sidewalks along College Avenue, with lowered curbs at cross streets to meet state barrier-free regulations. This construction has provided easy The recently completed M-26 roadway relocation project provided a 40 bicycle riding away from traffic. However, it has increased the car parking lot nea-r the Copper Range Depot, offering an unobstructed bicycle/pedestrian confrontation problem, especially downtown. A city view of Portage Lake from the lift bridge to the far western limits of ,Q@p ordinance was recently enacted banning bicycle riding on sidewalks of the City of Hancock on the opposite shore. the Central Business District. 10. MTU provides several parking lots for its faculty, staff and students. However, the daytime parking situation in the residential areas south and west of the main campus continues to disrupt that area during the school year. - Utilities Tihe City has separate sanitary and storm sewer systems. The storm sewer was recently constructed leaving the formerly combined sewer as the new sanitary sewer. A new sanitary sewer interceptor extends along the lake from MTU to new Mize Park. Sanitary sewage is treated at the Portage Lake Water and Sewage Authority plant, immediately northwest of the bridge in Hancock. This project, begun in 1964 as a joint effort by Houghton and Hancock, was an important first step toward correcting a century of abuse to the harbor confines of Portage Lake. A recently completed project to locate and repair water leaks has increased the City's ability to expand the municipal sewer system. The water in Por- tage Lake which at one time was subject to sewage pollution has been greatly improved by the recent sewer system improvements. Those portions of the Waterfront Development District, west of Verna Mize Park and east of MTU, are not presently served by sewers. The existing development on the Isle Royale Sands uses septic tanks and drainfields for sewage disposal. In 1980 the City of Houghton switched its source of water from the Cham- pion Mine in Painesdale (10 miles away) to two specially drilled wells on the Isle Royale Sands. The Wat erfront Development District is served by the new water system.No service, however, has been extended west of Verna Mize Park or gast of the new well site@.' Natural gas is provided by the Michigan Power Company with offices in Marquette. Electrical_ service is provided by the Upper Peninsula Power Company. their corporate headquarters are located in the C8D Their main source of energy is a coal-fired power plant in L'Anse. An abandoned Power- house Building, located immediately west of the lift bridge, is temporarily being used as a church. PROBL.EMS The analysis of the inventory information presented in Section 2 revealed the problems listed below. The Plan narrative responding to these items is discussed in the same order in Section 4 and presented graphically in Section 5. Hot" wo flo:( ----------I-------- P."P KT7 7 ;-V 401 MUNICIPA,L MARINA 12. a. Railroad c. Parking The presence of two major railroad systems, the Soo Line and the Copper It is difficult to find parking for shoppers in the Downtown Business Range along the waterfront area, has been extremely instrumental in District. One of the primary parking problems is on-street parking along the historical development of the waterfront. With. the demise of the Shelden Avenue. The Michigan Department of Transportation has been copper industry, the railroads saw less and less use. The Copper Range very concerned with this question, and has the past few years, suggested railroad has been removed, and recently the old roundhouse area was that all parking be removed from Shelden Avenue. demolished and cleared. The flat. freight yard is still vacant and the railroad beds still exist, although they have been overgrown. The off-street parking issue has been addressed by the construction of a Municipal Parking Deck north of Shelden Avenue. Although the deck The recent abondonment of the Soo Line is expected to be a major provides sufficient parking, a problem, due to under-utilization, has detriment to the further development of the waterfront area; particularly occurred. Several factors may -be responsible for this. The narrowness that area between Michigan Tech and the Portage Lake Lift Bridge. of the on-off ramp from Shelden Avenue probably discourages use. Also, people may feel that they are parking behind the stores when parking Remnants of the former industrial/commercial use form a visual barrier, on the deck, especially since they have to walk to Shelden Avenue to and the railroad right of way creates a physical barrier along the entire enter all stores except Swift's Hardware and Vertin's Department Store. waterfront. Although the lower level of the deck provides shelter during poor weather, it is dark and uninviting. The stairwell has become a location for broken b. Structures bottles and is a deterrent to the use of the upper deck. Due to the present lack of the industrial/commercial activity which has historically been associated with the waterfront, a number of buildings Another problem with parking on the north-south streets is that travel receive only minimal utilization. is often prohibited from these streets in the winter. Heavy use areas such as in front of the community building and in front of the Douglass The decreased use of the docking area for commercial boat traffic has House are extremely difficult for most vehicles to handle during snowy resulted in the deterioration of the broadside docks in the old Copper and icy weather. Range Company area, the Soo Line Depot area next to Dee Stadium, and the old Messner Coal Dock by Hamar-Quandt US-41 Lumber. A lower level The need for additional parking at both ends of the downtown has beeh of maintenance of the railroad property due to the reduced usage has increased with the construction of two fast food restaurants at each end resulted in over growth and building decay. of the CBD. The old industrial image of the waterfront remains 'as a deterrant to There is also a need for designated bicycle parking areas in the down- current development. Also, the lack of a general recommendation for town, which would allow bicycles to be secured. Presently bicycles are the redevelopment has resulted in a haphazard approach in regard to secured to lamp posts and parking meters. the style, color and location of the projects, which have been constructed in recent years. The view of Houghton from Portage Lake is intriguing. So much potential seems to be buried just below the visual surface. In many instances weeds or trees block the view. Mine rock, broken concrete and other insensitive erosion control devices have been used as deterrents to erosion. In one instance the railroad has used the hillside between the tracks and the water as dump. d. Pedestrian Access Bicycle traffic becomes a problem primarily in the CBD. Bicycle riding The long winters in Houghton make the opportunity to remain inside while on the sidewalks of the CBD has been prohibited by city ordinance. walking from store to store a more pleasant experience than walking Riders from Hancock must either ride up to Montez-uma Street or walk outside In the ice and snow. The enclosed mall, therefore, has had their bicycles along Shelden Avenue. a great effect on shopping trends in the Houghton area in justthe past year.. g. Recreation There is very little in the way of water oriented recreational sites in The additional problem of parking with convenient access to the stores Houghton at the present time. Occasionally persons will fish@ from the is also made apparent by the under-utilization of the parking deck. old Copper Range docks or tie boats up at the Cohodas-Paoli dock, but these are haphazard events and persons are not even sure whether or It is also more difficult manuvering a vehicle through the crowed down- not these activities are lawful. town streets than parking in the large mall lot. jogging and bicycling most often take place on the College Avenue and e. Signage Shelden Avenue sidewalks for lack of an alternative route. Signage in the CBD retail area has not been coordinated or regulated in the past. This has resulted in a maze of signs being used-most Even public viewing of the lake is only available from a few locations of which detract from the historical character of the downtown. The none of which are adequately or attractively maintained. jumble of signs is unattractive. Public service signs indicating parking and travel directions are often overlooked or hidden resulting in frustra- The City owned beach is two miles east of the downtown and accessable tion for visitors and townspeople alike. Signs directing vehicle drivers only from US-41 or the water. to*the parking deck are especially conspicuous by their absence along Montezuma Street and Lake Street. The water's edge at the northsouth streets has been allowed to deteriorate I. Vehicular Traffic and in most cases is dangerous. Parking facilities near the public access sites are often not available. There are no designated fishing sites. Congested traffic and restricted vehicular movements in the Central Busi- ness District. especially on Shelden Avenue are serious problems. - The There is also a need for more motel rooms. The need is attributable problems are most acute during the 4:30-5:30 rush hour, becoming accen- to both tourism and programs and activities generated by MTU. tuated during the dark, snowy, winter evenings. The situation is aggra- vated by pedestrian andnourth/southcross traffic which attempts to inter- A recent study conducted by MTU demonstrates the need for convention/ rupt the traffic flow. seminar facilities. These facilities would include motel rooms, restaurants and large meeting rooms. -The opening of the lift bridge creates a paralysis of traffic which may extend all the way to Franklin Square on the east end of the CBD. Since h. Housing there is no shunt for through traffic at the approach to the bridge, car The responsibility for providing housing is shifting nationally from the intending to go to west Houghton (40% of the traffic) lust wait with th: public sector to the private sector. (Locati on will become increasingly cars intending to cross the bridge. important in a competitive housing market.) In the past two years multi- family housing was developed along the Houghton waterfront, and this trend is likely to continue. 14. In du strial /Commercial Development There are sev 'eral problems related to housing in the City of Houghton. The City of Houghton has utilized almost all of its available land for The primary problem has resulted from the increased enrollment at MTU housing and commercial ventures. Houghton does not have an improved and is the need for more and better off-campus student housing. On- industrial/commercial park, and therefore, has no area set asidelto -lure campus housing has a capacity of 4000 students. The remainder have potential investors. The university is engaged in an international to find housing off campus, some up to 10 miles away. effort to introduce high-technology industries in the Houghton area. The present form of off-campus housing is typically a fifty year old or Houghton has no specific area zoned for this type of enterprise. ol@er wood frame structure, often without adequate parking. Most older neighborhoods, therefore, have been converted to student housing and Existing deep water docking facilities have been allowed to deteriorate. suffer from the typical problems of absentee landlords and too many cars. These assets would be useful in attracting future commercial shipping Some new multi-family housing units have been erected in Houghton in activity. the past 10 years and they have been readily filled. Only a few new single-family homes have been constructed, partially because of the state of the economy but, also partially because of the location of the available property. The availability of property for new home construction within the City is limited to less desirable sites. The only large concentration of single family homes within the waterfront district is in an area of Portage Township known as Dakota Heights. No recommendations are in- cluded for this area in The Plan. i. Tourism Several industries, which once were very strong in this area, have either ceased or greatly diminished their operations. The copper mining industry is almost nonexistent. Great ' Lakes fisheries are almost go'ne and the timber/lumbering industry has decreased severely. With the closing of the major industries, the City of Houghton, as well as the remainder of the Copper Country, has had to look to other sources of financial revenue. The foremost alternate revenue source is tourism. The shore of Portage Lake is Houghton's ihain tourist asset. However, the lack of improved/ developed recreational land and facilities along the Waterfront hinders its use. At the present time, visitors and residents can only conveniently view the lake from M-26, Franklin Square or the east end of the MTU campus. 15. d5 cow Do h-k OPPORTUNITIES I I CAty Ofg P-". The problems listed in Section 3 are combined with the assets indicated in Section 2 to form the opportunities identified in the following narratives and graphically conveyed in Section 5.' P, V---- MIA xv NO wowmN SOO LINE DEP 16. a. Railroad b. Structures Although the presence of the Soo Line Railroad right of way has always To aid the renovatioh effort presently taking place in the CBD, the City hampered the development of the waterfront, the recent abandonment now should institute some broad guidelines for restoration. The Plan recom- presents an unusual opportunity to develop a public bikepath along the mends that, as a start, the City adopt the guidelines from the Department lake from the east end of Houghton to the lift bridge. From the bridge of the Interior for historics districts. These guidelines must be met to the west end of Houghton the bikepath would follow the abandoned in order to participate in certain restoration tax credit programs appro- railroad beds. The installation of the pathway would provide four miles priate to many buildings in the CBD. of essentially level, uninterrupted visual access to the lake. The Community Building (City Hall) is an example of the type of renova- It could be used for walking, running and bicycling in the summer, tion restoration to be encouraged. and for snowmobiling and cross country skiing in the winter. The path would also be extended to the city owned bathing beach one mile past The City should adopt the color pallet indicated in the Appendix. the eastern city limits. Redevelopment should be explored for providing more people oriented activ- The City should make every effort to Acquire the R.O.W. even if only ities for four (4) large warehouse buildings on the waterfront: the Swift to hold it for a future railway. #33, Mattila #24, Gundlach #41, and Cohodas-Paoli #42 buildings indicated on the existing structures map and in the photographic log. During the initial public input stage of developing this plan a great deal of interest was expressed in providing a small passenger trolley Building #50 in the photographic log has been removed, -and an apartment along the existing rail bed. The trolley system would be used to trans- building constructed. This type of development is encouraged by the port MTU students downtown for 9 months. In the summer it could also Plan. Building #84 has also been 'removed to make way for the new carry visitors on a sightseeing tour along Portage Lake and eventually McDonald's Restaurant. Buildings #30 and #31 will be removed as part extended to the city beach. of work partially financed by a Small Cities Block Grant which was re- cently received by Houghton. This area will become a municipal parking This past spring, however, the City began to operate its own bus system, lot and will help facilitate the eventual extension of Lake Street, under A state supported scaled down version of an area wide system recently the' bridge and along the lake. The 7-Up Bottling Company #29 will abandoned by the County. then have to be relocated to make way for the Lake Avenue extension. An appropriate relocation agreement will be negotiated by the City of The system will eventually require two trolley depots, one at MTU, north Houghton. Building #40 has been remodelled and is now the new home of Cliff Drive adjacent to the center of campus with access provided by of the Houghton Burger King. a staircase elevator; the other depot would be located at the site of the old Copper Range roundhouse in west Houghton. The trolley system One of the most significant historic buildings in the City is the Soo Line could eventually connect the Houghton waterfroni with Hancock, - across Depot #38 on the north side of Lake Street between Isle Royale and Huron. the bridge. While most of the track required for this system is still 'in., The structure survives almost in tact even though it has been vacant place the City should more fully investigate the feasibility of a passenger almost 15 years. trolley. 4 The City should aquire the building and restore it as a visitors center. VY 17 C. Parking d Pedestrian Access The establishment of more convenient parking throughout the CBD has In order to compete with the new mall methods of improving customer become necessary as pressure is applied to change the parking situation access to CBD stores *should be explored. The City is building an inside on Shelden Avenue. Responding to Department of Transportation comments, corridor connecting the downtown stores on the north side of the 400 block the City of Houghton has constructed demonstration sidewalk extensions, of Shelden Avenue. The corridor will allow shoppers continuous indoor with clear zones of no parking and delivery zones of limited parking. access to all stores on the block. This project should be extended to other blocks. The clear zones have been decorated with flower boxes, benches and trash receptables. Limited parking has been allowed on Shelden Avenue with The Plan recommends that further consideration be given to skywalks this concept. The City of Houghton is intending to redesign the on-street eventually being constructed across some of the streets, allowing passage parking along Shelden Avenue, in the same manner as the present demon- from building to building -and from parking areas to high-use facilities stration sidewalk extensions. Downtown beautification will occur at the on the opposite side of the street. These skywalks are listed as Project same time that clear visions corners and curb side park ing/del ivery are 20, Item a. through f. on the list of Projects in Section 5. provided. The parking places removed along Shelden Avenue will be made up with additional City parking lots. A city lot on Quincy Street e. Signage near Lake Avenue will be built. The north Quincy Street lot would fulfill A complete municipal graphics system should be developed by the City. two of the prime objectives identified by the City of Houghton Future It should include letterheads, envelopes, business cards, permits, street Land Use Development Plan--that of providing off-street parking between signs, vehicles, etc. Everything that carries the name of the City convey Shelden Avenue and the waterfront, and that of the beautification of an image of the City. This image should be one of the strength and the waterfront area. consistency. Also, as part of the CDBG financed program, a Community Building parking An evaluation of existing private signage should be made in preparation lot expansion will occur. This lot provides off-street parking for the for passage of a Signage Ordinance by the City. An example of .. ap- east end of the CBD. Its completion will provide seventy-three parking propriate 'wo-rd'ing is included in the Appendix. Examples of appropriate places between Montezuma Street and Shelden Avenue, in the east end signs should-be included in the ordinance and should be available for of the CBD. public guidance. The City has widened the parking deck approach from Shelden to provide Historic buildings downtown should be signed with appropriate copper easier vehicle access. plaques and related to the "Story of Houghton" interpretive area atPrince's The Plan recommends that the warehouse building #37 be razed, and that Point. (See Appendix). A historic walking tour should be developed. a city parking lot be constructed on that site as part of the Soo Line f. Traffic Depot redevelopment. Traffic flow is an important aspect of any downtown commercial district. Several opprotunities exist to improve traffic flow in downtown Houghton. Traffic congestion on College Avenue is directly related to rush hour activity generated by Michigan Tech. It is also related to the reduction @1 in lanes from two to one at each end of the College Avenue corridor. 18. The Plan recommends that a new roadway should be constructed from Two north-south streets between Montezuma and Shelden should be aban- the site of the College Motel down the hill toward the lake and along doned or rerouted. They are Isle Royale and Portage. These streets the lake by the Soo Line Railroad yard. The new roadway would be should be incorporated into the parking lot recommended in Section 4c. The one-way west, thereby making the existing College Avenue one-way east. street closing will help to reduce congestion caused by traffic crossing The new road would meet Shelden Avenue at the Lake Street, Shelden Montezuma and Shelden. Problems caused by winter weather, continious Avenue intersection. sanding and frequent closing, will be eliminated by taking this action. The construction of this new road would have several beneficial effects. Abandonment of the south end of Ripley between Shelden and Lake should The first is that much of the traffic congestion, previously described also be considered in order to eliminate the hazards of winter maintenance would be reduced or eliminated. The road would also provide a long on this street. portion of visual access to Portage Lake. The hillside between College Avenue and the railroad yard would be visually improved, especially g. Recreation as viewed from Portage Lake. More direct access to the railroad yard Several recreation sites for public use of the land along Portage Lake would also be provided for future development. are recommended in the Waterfront Development Plan. The primary recrea- In order to preserve the historic character of College Avenue, the City tional site is the new broadside mooring facility presently under construction has just completed a major reconstruction project. Curb, gutter, side- at the foot of Quincy Street. The mooring facility is intended to serve walks, stret lights and poles have been replaced and new trees have tourist boat traffic and will provide interests and activities that compli- been planted to replace those that had died or been removed. The new road- ment the CBD services, especially the restaurant, motel, and specialty way would protect this investment in one of Houghton's most valuable shops. A launch ramp is proposed to compliment the mooring facility but may be eventually built further ' to the west near the mouth of Huron assets. Creek. This area can more readily provide the additional parking re- Another facet of the traffic flow problem is that traffic headed west from quired for this type of use. the downtown area must intersect traffic going over the lift bridge. The mooring facility will significantly improve the appearance of a major In order to partially alleviate this congestion, Lake Street should be portion of the CBD Waterfront (400 lineal feet). The City presently owns extended under the bridge. A building with little historic value (currently the land needed for this project, which has been funded by a Small Cit- housing the 7-Up Bottling Company) would be removed and the proposed ies Block Grant and a $ 35,000-00 grant from the DNR Waterways Division. east-west pathway would be incorporated on the lakeside shoulder of the street extension. Seven day-use parks along the Waterfront are included in The-Plan to Traffic flow on Shelden Avenue can also be improved by completion of allow more direct public use of Portage Lake. Each park will also be a designated fishing site and will be appropriately signed and marked. the sidewalk extension/clear view zone project. The sites will also be available for other passive recreational activities. A third street covering should be built over Quincy Street between Shelden Avenue and Lake Avenue. The covering on Quincy Street would be similar to that covering Huron Street, and would function as a snow diversion shelter during the winter. it 19. One day-use park is recommended at at each end of the Houghton Water- The construction of theze seven day-use parks will enhance the public front; Brewery Park at the west end and a wetlands nature walk at the use of Portage Lake. The connection of the parks with a bikepath will east end. Brewery Park would offer picnic facilities and would be land- be the final step. scaped to provide a quiet, shaded environment away from the noise of ront will also include complet- the City. The nature walk would be constructed with boardwalks and The total park development along the Waterf natural paths, providing .- access to the various flora and fauna of the ing the landscaping a: Verna Mize P ark and three interpretive areas downtow Mines and Ships. wetl -ands area at the mouth of the Pilgrim River. Access to the wetiand n featuring Trains, site, will be from a new road into the Camper Park from US-41 to a new parking lot. The trail will begin with a new bridge to be built h. Housing on existing timber piles across Peepsock Creek. The need for housing si-.es is becoming more acute as the shift from pub- lic to private housing begins to gain momentum. As indicated above, The ten acre well site on the Lake at the Sands could be developed as two apartment builcling@ have recently been constructed along the Lake. a day-use park without violating its special reserve designation. Picnic This trend should continue and is encouraged in The Plan. and playground equipment would be provided. A large R-3 zone is recommended for establishment at the Isle Royale A fourth park is designated at Prince's Point. This park includes an Sands. R-3 allows a.)artments and condominiums to be constructed. Interpretive Center, telling the "Story of Houghton" through a series of R-3 is also recommended' for the 500 Line freight yard. The area west bronze plaques, mounted on hardrock boulders, set in a minerock bermed of Brewery Park should also be zoned R-3. The property is presently room with a stampsand floor. The Center would be .landscaped with flow- in Portage Township a nd it is recommended that it be annexed to the ers, maple trees and thimbleberry bushes. A timber stairway with lookout City of Houghton. The annexation should also include the area south platforms leads the visitor to the relandscaped Waterfront park, which of the Canal Road, wi:hin the Waterfront District, on the west end of extends for one-half mile along the Lake. Barrier-free access and addi- Houghton. Various devel.-pment approaches should be encouraged. tional parking is provided at the east end of the park. Vehicular access to the east end lot is by a new road which would also serve the new i. Tourism' park at the well site. The increased need for =otel rooms and convention facilities is recognized A fifth day-use park is being considered.for construction by the National in The Plan. Three s'tes have been identified as being most suitable Park Service adjacent to the existing Headquarters Building. This park for the development of new motel /rest aur ant construction. The largest will be in conjunction with an expanded Visitor's Center which is also site and the site with the greatest potential is the old Copper Range under consideration for this site. Depot property, directly west of the lift bridge. A private developer plans to attract a ma,:r motel chain to that site. Meeting rooms and Small day-use parks will- also be part of the Soo Depot redevelopment and a unique restaurant are included in the plan. and the new launch facility at Huron Creek. The King's Inn Best Western Motel is currently expanding its facilities to include an indoor Tzol, sauna, and 15 additional rooms for a total of 65 units. 20. A new motel /restaurant project is now under construction by another pri- The Plan allows for additional docking space at MTU's physical plant vate developer. It is called Main Street Inn East. This seven story side. facility will have 50 motel units with a restaurantAounge on the top floor. The Keweenaw Waterway is controlled by the Corps of Engineers. They are responsible for maintaining a usable shipping channel. To insure j. Industrial/Commercial that no construction prohibits the use of the channel for shipping, a Cities depend on an expanding tax base to secure the continuation of harbor line has been established, beyond which no construction is allowed. services. The City is hampered by a shortage of industrial development. At the present time a number of docking facilities have been extended Industrial sites are not readily available in the City. to this line. More dock extensions to the harbor line could be made. The Waterfront Development Plan calls for a portion of the Isle Royale Sands to be reserved for industrial and commercial development. The revised zoning map for the Sands shows an area to be zoned industrial. (See Appendix). This area will take advantage of the existing Soo Line Railroad tracks and will have lake frontage for future development as a commercial/industrial port site. A green belt (as indicated on the Zoning Map) is intended to be located between the industrial zone and proposed R-3 (multi-family) and MU (multi- use) zone. A new roadway entrance for the industrial site from US-41 is recommended. The existing entrance to the Isle Royale Sands is very poor, and does not exit onto the highway at a 90 degree angle. The recommended en- trance would have a gentler slope, and would provide clear vision to the highway. The proposed new entrance will serve the existing block plant, and provide improved accessi bility for future development. To provide for future commercial/industrial boat loading faciliti es, the Plan recomm nds that the existing broadside mooring facility next to the City-own:d Dee Stadium be reconstructed. The land owned by the 41-Lumber Company should be further expanded for commercial use. The existing docking facility is still useful for commercial/industrial loading and unloading. The docking facilities at Michigan Tech are also suitable for shipping. 21. CHAS UNITED STATES MICH DEPARTMENT OF THE INTERIOR -COCK IJUNC. STA "E.Uo. 20, 1 7.5 MINU GEOLOGICAL SURVEY gl@ - - 32 'a 11 ,,E SE 88 37'301 OSKAR 3 9 Mi. 113 W. 3 11620 000 F7 1 47*07 T 607 E JI, ob A R) N E ly I @16A. COLLEGE OF -1-8 ND TL@NOLOQV 3k 34 0 6 ell ---- ------- W19 T. SS N. T. 54 N. --urontow. A. A 02 3 4 6 5 -vs -Y 76 4. 4 NLEM ALE M Atlantic M) tome WIT Mine 11 -.e, it;: it --41 Lp I Co"Sei: r Ville 'o, -7 10 JI 12 7 8 W1 A. 9 LliLlotRoyale-Seb .2. 2 5' it 4: BUILD DAY-USE PARK ANNEX LAKESHORE TO WEST EXTEND LAKE.AVENUE BUILD NEW NORTH OF CANAL ROAD END OF CITY OF HOUGHTON UNDER BRIDGE. MARINA. TO SERVE NEW RESIDENTIAL PROPERTY ZONE AREA R-3. AREAS. BEGIN WEST END OF BIKE PATH. BUILD COMMERCAAL COP R IM brkV& to OFFICE OR HIGH TECH RANGE DEVELOPMENT DEPOT TROLLEY ENDS AT ROUNDHOUSE SITE. BREI@@ PARK 4C PLANT FLOWERS AT ENTRANCE COMPLETE TO CITY SELL PROPERTY CONSTRUCTION SOUTH OF CANAL AT VERNA MIZE PARK. BUILD ROOF ROAD FOR DEVELOPMENT 7 OVER QUINCY BUILD NEW CONVENTION STREET. AS R-3. DEVELOPE A CENTER-MOTEL MASTERPLAN DEVELOPMENT AT DEPOT. RELOCATE FOR LANDSCAPING "Eft-Y Nwf_tl@w_ HOUGHTON IN THE DISTRICT BOTTLING COMPANY TO INDUSTRIAL FARK. location map SCALE 0 1500' project site houghton . lake supedw conads minnesote w _\_Vchigan g!4-- h -n 22. RECONSTRUCT BROADS UILD NEW US. 41 FUTURE EXPANSION MOORFUNG Ar WEST BOUND. ALONG LAKE AT DEE PHYSICAL PLANT IS %_= EXPECTED. U IT @,82%@INE ENCOURAGE COMMERCIA USE T AT 41 LUMBER AREA. T-1 MAU pwtav lem REZONE SOO YARD FOR R-3 DEVELOPMENT OR B-3 FOR HIGH TECH. BUILD SKYWAY OVER Clty0f CLIFF DRIVE FOR EXTENEY TOWNSEND !!z ACCESS 'TO PARKING DRIVE DECKS OR TROLLEY hou hton DEPOT AT EAST END PLANT FLOWERS AT OF LINE ENTRANCE TO CITY- MICHIGAN LANDSCAPE PLAN. michigan % TA L"VERSITY PRINCEs j POINT MAINSTREET INN COMPLETE COLLEGE U.P. john 50 UNIT MOTEL WITH AVENUE RECONSTRUCTI ro ON.. ger RESTAURANT AT NORTH engineering . 800 BLOCK IS LINDER BUILD DAY- USE PARK and R*ra PROVIDE ADDITIONAL EAST AND WEST OF nsen CONSTRUCTION. PARKING DDWNTDWW architectural C PRINCES POINT -ABANDON PORTAGE associates BUILD VISITORS STREET archftect CENTER AND -RELOCATE MATTILA BUILD SKYWAY DAY-USE PARK ACROSS U.S.41 BIKE PATH ON to C 'Do PC AT ISLE ROYALE OFFICE. FOR SAFE ACCESS RAILROAD GRADE. houohfon"ft 49931 ni HEADOUARTERS. -SOO DEPOT. TO CAMPUS FROM 9 BUILD VISITORS INVESTIGATE ALTERNATE THE DORMS. team 9w 4&2 674o CENTER AND PARKING USE FOR COHODAS-PAOLI 4-- LOT AT SOO LINE REZONE ISLE ROYALE SANDS BUILDING AND FOR i BUILD SCENIC WiLl. TO ENCOURAGE MORE ORDERLY DEPOT. GUNDLACH BUILDING. TURN -OUT TO TELL SITE. DEVELOPMENT SEE APPENDIX. BUILD HISTORIC DESIGNATE "STORY OF HOUGHTON SHIPPING/MINING PUBLIC AND PROVIDE PARKING FOR PUBLIC PARK AT DISPLAY AT PARK FISHING AT SOO UNE DEPOT. SITES BOTTOM OF SLOPE. BUILD TIMBER STAIR BUILD DAY'- USE TO LAKE. PROVIDE PARK ATWATER EDGE AT WELLS. SIGNAGE "INTERPRETIVE CENTER" IMPROVE EXISTING ACCESS ROADS. BUILD WETLANDS NATURE TRAIL chyWhancock /BUILD NEW ROAD DAY-USE PARK WITH BUILD NEW ROAD TO CAMPER PARK. PUBUC FISHING SITF_ ON SANDS FOR A E NEW CC SS To PARK AND FUTURE city of houghton ap Iske PROVIDE ACCESS DEVELOPMENT THRU CAMPER PARK 7 - ACROSS PEEPSOCK waterfront CREEK. development BUILD NEW ROAD EXTEND NEW BIKE 4 FOR BETTER ACCESS 5 _WAA@7, RID- FR(a BEY lu LAK! 9 I PATH TO SUNSHINE TO INDUSTRIAL PARK. BEACH. MEY 2a IMPL'EMEN ION This section is intended to provide an inventory of methods and programs for use in implimenting the Plan. "-,ftw MM" s, I jV V or w i@, WIT. 0",@T RV WV= V PC PYK4w"Iftm I -Mw Flo* *VMIWT DOWNTOWN VATERFRONT TAT 24. UO In order to facilitate The Plan, the City Zoning Ordinance was analyzed Zoning can serve as an excellent means to facilitate the orderly imple- for its applicability to the proposed program. The Houghton -Planning meniation of The Waterfront Development Plan. Commission has recently endorced revising the existing Zoning Ordinance. The area of the city effected by the revision is the Isle Royale Sands. Implementation of The Plan will require financial assistance from a number of federal, state, l9cal and private funding sources. The City of Hough- Due to the complicated pattern of past development, the proposed zoning ton has already taken advantage of a number of these programs. A for this area is intended to promote the highest and best use of the pro- description of the funding* sources and how they apply to the various perty. components of the waterfront program is outlined below: The area consisting of 10 acres surrounding the City well site must remain Federal and State Programs undeveloped. One use of this land would be as a day use park. Since the City already owns the land the development as a park will not be 1. Economic Development Administration difficult. Experimental planting plots could also be developed in coopera- (a) Public Works Grants (Title 1) tion with the Forestry Department at MTU. Public Works Grants are available to areas working to overcome economic problems. To qualify, the area must be within a designated economic The portion of the Sands which is platted for residential is recommended development district or redevelopment area. The applicant must also to remain as residential. Alternative zoning would have reduced the be legally empowered to undertake the project and to receive and disburse value of the existing investments. federal funds. The portion of the Sands, which has been developed as an industrial/ (b) Business Development Loan Program (Title II) commercial area, is recommended to be zoned industrial. While it is The EDA makes loans, loan guarantees, fixed asset financing, working certainly the intent of this zoning to promote economic development within capital financing and lease guarantees to private businesses and nonprofit the city, the utilization of this land for certain uses could lead to elimin- organizations in designated redevelopment areas. ating other potential uses which require waterfront access for their opera- tion. Uses such as ship r@epair and maintenance facilities, shipment (c) Economic Development Grants (Title IX) of bulk material such as coal, and processing or shipment of timber re- This program assists states and localities to plan and carry out compre- sources, all represent potential activity for the Sands property. hensive programs to meet special needs arising from actural or threatened severe unemployment as a result of economic dislocation. The existing multi-use zoning on the Sands will be reduced in size, but will remain in the east end in order to allow the property to be developed 2. Title I Urban Development Action Grants (UDAG) as either residential or industrial property. The multi-use zone extends UDAG requires a firm commitment of private investment from a business from the railroad tracks to the water's edge in order to allow transporta- interprise before a project is eligible for government funding. tion either by rail or by ship. The application for UDAG funding must include evidence of commitment It is the feeling of the Planning Commission that the opportunities for of the public and private resources available for completing the project. both private and public development are optimized with this zoning change. The UDAG funds may be used to improve public facilities needed for a private project, or the funds may be used as a loan from the City to a private developer for the private project. The terms of such a loan are negotiable. 25. BUD currently favors projects which provide for financing based on a The Corps of Engineers would be utilized most exclusively in the design ratio of 25% government money and 75% private investment money. The and construction and design of marina breakwater dredging and other greater the amount of private participation, the better are the chances navigation requirements. The Corps of Engineers would not be responsible of getting UDAG funding. for land acquisition, roads and parking, and other public facilities neces- sary to complete the entire project. The Corps of Engineers will require 3. Michigan Department of Commerce their involvement from the initial feasibility study through the detail Community Development Block Grants - Small Cities Program project report which they would complete. The Corps of Engineers have The Small Cities Program has been established to provide grants to local programs to provide financial and technical assistance for general naviga- government units to undertake community development activities. This tion facilities. Specific financial assistance during the construction stages program was previously administered by HUD and in 1982 it was delegated of this project are dependent upon the availability of funds and the to the state to administer. ability of the City to secure matching funds towards the Corps cost partic- Eligible applicants selected for funding must adequately address the needs ipation. of low and moderate income persons who will benefit from the proposed 5. Upper Great Lakes Office program. The Small Cities Program is extremely competitive and the Michigan Department of Commerce demand for funds far exceeds the amount available. However, the City This State of Michigan office is available to provide technical assistance of Houghton has received a Small Cities Grant in the past and has an for the funding of the public and private projects proposed by The Plan. excellent opportunity to capitalize on these funds as the Waterfront Eco- nomic Development is consistent with some of the purposes identified for 6. SBA Community Development And Business Loans Small Cities 'Program. First, the program would promote a more rational The Small Business Administration (SBA) has a variety of loan programs land use development. Secondly, the program would increase economic commonly used by growing business and industry. These include: opportunities for the low and moderate income persons through construction of the proposed motel/restaurant complexes, and through redevelopment (a) Regular Business Loan Program (Loans) of the downtown area. The maximum loan to each assisted business is $500,000. The terms of the loan are generally seven years for working capital, ten year for 4. U.S. Army Corps of Engineers machinery and equipment, leaseholds and renovations and twenty years Small Navigation' Projects for new construction and land acquisitions. This program provides for general navigation projects which have J@een economically justified by the Corps of Engineers and have received author- (b) Local Development Companies (Section 502) ization and funding by the City. Local development corporations may use this type of long-term financing to buy land or purchase, convert, expand, construct or modernize build- ings. These loans are not to provide small businesses with working capital and cannot be used for refinancing purposes. Loan terms to local development corporations may not exceed 25 years (except for special liquid extension of up to 10 years) and SBA participa- tions are granted for a maximum of $500,000. 26. 6@ UO (c) New Contractors Program The Farmers' Home Administration (FmHA) guarantees loans by private Small general contractors who build new residential or commercial proper- lenders to improve the economic and environmental climate of rural com- ties or rehabilitate existing structures are eligible for guaranteed business munities. FmHA loan guarantees are available for: loans from the SBA. To qualify for a loan, properties and structures Business and industrial acquisitions. must be immediately resold. Construction, conversion, enlargeme4t, repair and modernization. Purchase of land, machinery, equipment, furniture and fixtures. 7. Construction Loan Guarantees For Contractors (Section 410) Processing and marketing facilities. This program enables small, independently owned contractors (not dominant Start up and working capital. in their field) to receive loan guarantees up to 90 percent for a particu- Pollution control. lar contract. The Small Business Administration will guarantee these The FmHA guarantee may cover up to 90 percent of the loans with up contracts up to $500,00. to 30 years to repay. Loans may be made on land, buildings and per- menent fixtures. Fifteen year loans on machinery and equipment are Other SBA Programs: available with seven year loans on working capital. Economic Opportunity Loans Small Business Investment Companies 10. Resource Conservation and Development Program Displaced Business Loans This program makes funds available at 50% - 50% federal/local match for the development of recreation facilities on water-based recreation 8. Land and Water Conservation Fund areas and at 75% - 25% federal/local match for sedimentation and erosion This fund, administered by the Department of Interior's Bureau of Outdoor control on water-based and land-based recreation areas. Recreation (BOR) is probably the best possible source for receiving money for recreational oriented projects. 11. Section 201 of the Federal Pollution Control Act Amendments of 1972- Monies from the fund are available for acquisition of land for future EPA-208 recreational development and for development of outdoor recreation facili- The federal program is administered by the Environmental Protection Agen- ties. The most important criterion for eligibility under the program is cy and provides funding for wastewater tretment facilities and Collection DNR approval of a local recreation plan. Projects are funded at a 50%- systems. Its primary concern is to correct the existing water pollution 50% federal/local match. problems, not the extension of sanitary sewers to the new areas. Under this program, the EPA will fund 75% of the project cost, where as the 9. U.S. Department of Agriculture Funding Programs other 25% in generally shared by the state and local units. The U.S. Department of Agriculture controls monies through its various 12. Department of Natural Resources-Waterways Commission agencies for funding of la .nd and water based projects. The Waterways Division administers a program providing grants-in-aid Farmers Home Administration, U.S. Department of Agriculture, provides to local units of government for the construction of recreational boating loans and grants to public bodies and non-profit organizations primarily facilities. The grants .be equal to 5D% of the total cost of such facilities serving rural residents to develop domestic water supply and waste dis- including engineering and contingencies, unless federal matching funds posal systems. have been secured for the project. If this is the case, the federal gov- ernment provides 50%, the Waterways Division 0%, and the local unit 10% of the project cost. 2.7. 0 13. ' The Michigan job Development Authority Cities with populations under one million may levy up to two mills as The Michigan Job Development Authority (MJDA) through the Michigan De- an ad velorem property tax on real property in the District. I ncome partment of Commerce offers an alternative for industrial revenue bond raised through these taxes must be used for the day-to-day operations financing in the state. The MJDA offers direct loans and loan participa- of the authority. tions as a means of financing industrial construction. The authority plans and provides financing for rehabilitation and new MIDA may loan funds directly, guarantee loans made by other financial development projects aimed at solving specific downtown problems. It institutions, issue IRBs and participate in other special financial programs. can raise operating revenues through public and private contributions or through the properties it may control. Local Funding 1. Downtown Development Authorities 2. Industrial Development Revenue Bonds Central cities of all sizes can take advantage of the Dowtown Development The proceeds of municipally-is sued Industrial Revenue Bonds URBs) may Authorities (Act 197, P.S. of 1975) to spur their economic development. finance the total cost of starting up or expanding a business in Michigan. The goal is to furnish a favorable environment for businesses and resi- dents in downtown areas. The bonds may finance up to 100 percent of the cost of industrial land, buildings, machinery and equipment, air and water pollution control The Downtown Development Authority can finance the restoration or devel- equipment, solid waste disposal facilities and tourist, resort and other opment of a deteriorating central business district through bond issues, commercial facilities. tax levies and the use of tax increment financing. The authority can even help with back-up financing for historic projects. The present Since the interest on such bonds is exempt from federal and state income valution of the Central Business District in Houghton is 5,493,550. tax, they can be marketed at a rate lower than comparably ratedcorporate bonds. This means lower capital costs which in turn are reflected in The three ways the authorties finance development projects are: the annual rental payments of the industrial or commercial conern. Bonds (a) Revenue bond issues. A municipality under certain limited circum- may take up to 40 years to mature.' stances may pledge full faith and credit to back the bond. (b) Tax increment financing. Additional tax revenues from private 3. Economic Development Corporations Act investment in designated downtown districts may be diverted into a bond This act permits a county, city, village, or township to establish a public financing fund for related public improvements. Economic Development Corporation (EDC) which helps business or industry (c) A DDA could request the City to borrow money and issue notes, in acquire land, buildings and equipment on advantageous terms. Houghton anticipation of collected taxes. has had an EDC for several years. From the proceeds of tax-exempt revenue bonds, an EDC may acquire, maintain and develop the land, building, machinery, furnishings and equipment necessary to complete a designated project. The EDC may enter into leases, lease-purchase agreements or installment sales contracts with any person, firm or corporation for the use or sale of the project. 2a 6@ 0 4. Revenue Sharing 10. Voted Millage This program is actually a federal program under which the local units Capital improvement funding through voted millage has been very common of government get a certain amount of money which can be used, depending in the past,but under the existing trend towards increased 'fiscal austerity, on the local units discretion. such funding option is not very popular. The existing City millage rate in Houghton is 22 mills. 5. General Obligation Bonds To increase millage in the City, the proposal must be put on a ballot Improvements that benefit the entire community are usually financed by for voter approval. General Obligation Bonds. The sale of such bonds requires a vote of the electors with a minimum of 60% of the votes cast approving the sale. 11. Utilization of general obligations bonds, general funds, and city At no time can the city bond be more than 10% of its state equalized loans may be the least desirable method of financing projects, but never- valuation. The present valuation of the City of Houghton is $29,420,755. theless, they may provide adequate funds to complete the financial pack- 6. Revenue Bonds age to construct a development. Capital improvements that benefit only those who subscribe to it are usu- Citizen Participation ally financed by the sale of revenue bonds. In the case of the City it i!@ extremely important that the citizens of the City of Houghton under- of Houghton, several sewer and water projects have been financed by stand the planning issues confronting the City, and the advantages to revenue bonds. To make such bonding successful, revenues from the be derived through implementation of the Waterfront Development Plan. subscribers should be great enough to provide an excess of 50 percent The Plan is intended to be a vital document and therefore, should be over the principal and interest payments. reviewed and updated according to a regular schedule. The Planning Commission is the City Agency best equipped to conduct this review. 7. Special Assessment Bonds The initial review period should be one year, and a review report should These bonds are us@d for a specific district where the improvements will be presented to the City Council. only benefit the property owners of that district. 8. Tax Increment Bonds Municipal bonds payable from the incremental property taxes collected from a specific area or piece of property,_ basedon the normaltax millage rate as applied to the portion of the assessed valuation on said area or property above a preceding base year, representing effectively the developmental improvements constructed thereon after the base year. 9. Building Authority Bonds These bonds are used to finance certain projects where the improvements can generate revenues which can be ear-marked to retire the bond related debt. 050 C CONCLUSION Believing that the @est plan for future waterfront development must ad- dres the needs of all the people, every attempt has been made to maximize public participation in its formulation. The local planning tean has been available for public and private comment during the preparation of the Plan and continuous liaison has beerf maintained with both the Planning Commission and the City Administration. The Plan represents a combination of public and private projects that require an agressive municipal government acting in the best interest of all the people. It intends to arhieve maximum public utilization of the four mile waterfront within the important realm of reasonable accord with private interests. The City of Houghton Waterfront Development Plan, through the year 2WO. Adzptedt October, 1962 0" P -.9,M owc Wit o V W IV' Ccr dole IN POINT A MY Q-;1 AP'PENDIX 1. Data Maps 32-40 2. Signage Ordinance 3. Color Pallet 42 4. Sands Zoning Recommendations 43 5. References 44 6. Photo Log Separate Cover 7. Waterfront District Ordinance 45 S. Projects List 46-47 31. jOnn engin(,-@eriznq inc. i oh.*,,., n Is c: arc. 1--ti Ire c team I I-it T HO PIC 1A,7 32. UwiL engneering inc. jo ansen houcjhton architect- Arn(;nIvin@.' flit city of 'bm INA LOANC7 01@ houghton WATERFRONT DEVELOPMENT. PLAN s @ a'@,; i - 7 5 0' 1@q 06. .it ma AMS tV7 VJ@v4iH-L NJ J@-/@,w qlv, ARo 04N) OQI, SIA oe- fiton -T lo@ @iotog cm @,,O.Y.43-`EPRRONT -14: 71- f tK@-T- bV ; 34. o h n 109e@ iohari.-en '411:@1MVII JNA LO CII) W-.W Z Pau 41 19- engmering ansen inc. houghton!archtect projl@ct Planning houghlon fri 414931 team %6 482 C5,74f) j, I L- J@ - ,,,* CRY NA UNINA Kw tw WATER NT DEVE ENT PLAN: scale 1`-@ 750' Of. �h FRO LOPM 36. ar Inc., houghton!: wchftect proMct Planning l-qhloo ml 4993, PfWg@ Low t m 48? f,74(l, ea do 40 C 4 4i' city Of, houghton WATERFRON DEVELOPMENT PLAN sc@,Ie 1'- 750' IN VNI "4 Mir tr Mb aft - 37 engineering,.roger inc. J houghton architect proj@ct plannng team 906 482 6141T j.,b, q46 goo '@66,w i ww- 000 a t, p q. "Ity of Co, r"V/ h5ughton gn WAT T VELO MENT AN ScMe I. 75o' 00 DE FRON PL p Vora- ft e@ 38. U'p. Toger inc, ioharo'3en planrlif)q t cl city of houghton ho P6llvw,-,K1 A ftVW-- VIVATEAFRONT L A 00 39. engkower t@R .ing ind. jNg;@en INV we- houghton ardtftect PrOOCt loo portage planfM tea hotighlon, n*ti. 49931 9064826740 @7T .. ... .. ... W.*.OW, V r C Of. ghton- 'I N rtN, P fr- I N n, @01, W. WATER T DEVELO NT PLAN scale 1- 750' MOW d 'j'.. Ise, 4F# 40. The City of Houghton Zoning Ordinance should be ammended to Include the following provisions: Section 1508.2 Applicants for a Signage Permit shall submit sufficient documentation to verify compliance with this ordinance and the City of Houghton Building Code. Documentation shall be sealed by a registered Architect. Such documentation shall address the aesthetic relevance of the proposed signage and its structural stability. Documentation shall also indicate height, size, color, Illumination and location. Permit fee to be as determined by the Houghton City Council. 41. ID Top numbers are Sherwin Williams colors. P Bottom numbers are True Value numbers where indicated. DEMO Ij q1ty0f houghton rvichgan 4 P_ john engineerng roger and joha-men architectural Classical White/94408 Gold Vein/BM-75-5 Copper Lode/BM-74-14 associates architect Ivory/7225 Colony Gold/7241 protect =r. Mamfflg team HOUGHTON'S HISTORICAL COLOR PALETTE Autumn Sumac/BM-71-21 Arroyo/BM-72-20 Buffalo Brown/BM-72-21 The colors shown are drawn f rom Heritage Deep Copper/7742 Golden Brown/7206 Colors: Authentic Exterior colors for American Buildings, 1820-1920, a publication of the Sherwin-Williams Company. These colors have been authenticated by Dr. Roger Moss, and documented in his book, Century of Color: Exterior Decoration for American Buildings, Mocha Java/BM-72-22 Charred Oak/BM-72-24 1820-1920. Although the eight colors here Quaker Brown/HPX-16 Bedford Brown/HPX-3 are especially recommended, all the "Heritage Colors" are appropriate to the Historic District. A limited number of copies of the complete Sherwin Williams publication are available in the Houghton City Hall. M10 FRI. W L A 42. Citvof hou hton rTichigan PRINCE'S MNT !r,@ n U.P. ger engineeri 'n RESERVE a2djohansen architectural a assoc, tes jarchitect RESIDENTIAL-3 je pgn7nincgt RES E teaml w "2 6m INDUSTRIAL W WELL EL Sr BUFFER FTME ZONE ULTI USE N" :F R5 @uo 17 DDEY mm LA H, RECOMMENDE ZONING CHANGES ISLE ROYALE SANDS 43. REFERENCES Waterfront: A actic 1. Improving Your Pr al Guide U.S. Department of Commerce, National Oceanic and Atmo- spheric Administration, 1980. 2. Hancock-Houghton Region - Future Land Use Develop- ment Plan for the City of Hancock and the City of Houghton; Vilican-Leman and Associates, Inc., 1972. 3. Two Harbors Waterfront Economic Development Pro- gram; Two Harbors, Minnesota, Architectural Re- sources, Inc., 1978. 4. Facilities Plan for the Mackinac Island planning -Area; Mackinac County, Michigan, Capitol Consul- tants, Inc. 1981. 5. City of Houghton Zoning Ordinance 6. Downtown Calumet Historic District Plan; Calumet, Michigan, John R. Johansen, Architect, 1981. 7. An Analysis of the Use of Rental Accomodations For Overnight Visitors and Participants in Activities of Michigan Technological University; Administra- tive Services MTU, 1982. 44 AN ORDINANCE ESTABLISHING A WATERFRONT DEVELOPMENT D ISTRICT A. INTENT To enhance and protect the physical appearance of the waterfront and encourage implimentation of the waterfront development plan. To require advisory review of new projects within the district for compliance with the plan. B. AREA All area within the City of Houghton that is north of U.S. 41 and all area within the City of Houghton that is within 1000 feet of Portage Lake and north of M-26. This area designation shall apply to all areas of future annexation. C. ALLOWABLE USES All uses encouraged by the waterfront development plan and allowed by the City of Houghton zoning ordinances. E. ADVISORY REVIEW The City of Houghton Planning Commission shall conduct advisory reviews of projects compliance with the plan at their regular or special scheduled meetings and shall report their comments to the City Council. The Planning Commission shall also conduct an annual review of the status of the waterfront development plan and submit a written report to the City Council. 45. YwFlr\ W PJ,W IM-W -ro',// 17, Z twr 144 rTvlr::rl. rlpS@_,A -A'V@INM. 1/1@ .1441pyr- PrN PVW.//r 111V /MAor r jjl@@A-r2 - ll@P@ ',- - -_ 1(1@ O@Tnv_ Tr 1@m _. _. __ __ ;Ip - -.- @ 14V, a4:7 -- -------------- _1W - ----- A. Mow. war. Hwv" ir Hr m r ROJECM NU@ N*K I'W7 YC17 Y@@. w I, ZONIN_@ Ar E!M41WI 0,17 @4WYW Na AP. tiV, av /ft) INM 40 ATO A-FU 41 - PlNf _V9,40 lll@ WIWI -@'WV @awAr7' - IW;7 lr@?av iwTvit-v rAr- twkx- -.@,ANP@7 mTr-,-f r,(,,Avt7 1@9,w Nr-w w Ira w Lj@;@ WIKI - . AV. Nr-v4 ww v Nnj!@,JNAi, ro)@ - W, OV VA\'f UA,;t,* ixAlrl rl@,@k4 IN *- 1.11 1, @ , uo@ , 051 ,@'@7 p ek@@w- mw 1417;Y2 nt,5@ Raj C76 47.