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COASTAL AREA DEVELOPMENT PLAN f or the Saginaw River Environs Of +he ownship of Carrollton 4f MANIVING 0"BAIMENT MNSULTANIS i P.O. 111111142 SAGINAW, MICHIGAN 41964M @COSTAL AREA DEVELOPMENT .PLAN for the SAGINAW RIVER ENVIRONS of the TOWNSHIP OF CARROLLTON August 1983 Prepared by: Township of Carrollton 1645 Mapler-idge Road Saginaw,, Michigan 48604 With Professional Assistance ot: A. Howard Kundinger Associates Planning and Development Consultants Post Office Box 1142 Saginaw, Michigan 48604 COASTAL AREA PLANNING PROJECT TOWNSHIP of CARROLLTON TABLE OF CONTENTS PURPOSE OF STUDY .PART 1: COASTAL AREA INVENTORY A. Existing Land Use Inventory and Trends B. Transportation Linkage 3 C. Natural Resource 7 D. Plan View of the Area 9 E. Neighborhood- Recreation Business Markets 13 PART II: COMMUNITY PARTICIPATION 15 A. Agency Coordination: Summary of Results 16 B. Property Owner Survey/,Interviews: Conclusions 17 C. Community Participation Seminar: Policy Directions 18 D. Synthesis of Policy Input and Development Goals 20 PART III: COASTAL AREA GENERAL DEVELOPMENT PLAN 22 A. Vacant Parcel Options 22 B. Further Commercial Development 24 C. Context for Industrial-Marine Growth 30 D. Impact of Commericial-Industrial Marine Plans 34 E. Desireable Public Access & Recreation Plans, 37 PART IV. COASTAL AREA DESIGN CONCEPTS 42 A. Carrollton Road Beautification 42 B. Riverfront Recreation Sites 45 PART V: IMPLEMENTATION TECHNIQUES 46 A. Community Commitment and Involvement 46 B. Capital Investment Sources 48 C. Public Incentives 49 D. 0rdinance 50 APPENDIX A-1 PURPOSE OF STUDY. This study is funded in part (50%) by a grant from the, National Oceanic and Atmospheric Administration of the Federal government to the Land Resources Division of the Michigan Department of, Natural Resources. The state agency has then subcontracted with the Township of Carrollton for this specific study. The general purpose of the federal government in funding these projects is to address concerns with the natural, commercial, recreational, industrial and aesthetic resources of coastal areas in terms of present and future public value for their utilization. The specific purpose ot this Carrollton project is to focus on the riverfront & Carrollton Road area, including the Carrollton Bar (island), in formulating a planning program that will help guide future economic, social and recreational development. This document then, provides the formal summary and results of the project. However, the function of this document is to also provide for a rational, well-infomed, decision-making process beyond this document so that it can lead, to implemation of this plan. COASTAL AREA DEVELOPM34T PLAN TOWNSHIP OF CARROLLTON P R. 0 J E C, T L 0C A T 1 0 N M A P "IgWWo6(r a 4 ISABELLA Rho e_$_ Mount ND RES �WW Ptit::;= Forest, E S A G I N A TAI F: ste .1 co nin Stony rnBay Po B A 'I e Kaimhay Hope Nayan Ui q ng Pt. Sa. @rj Cru p La inwood Larkin Fish Pt @ebewaing Du I veril Nillard 585. Kav awl, roject Locatio P y Par Unionvilf' Ison Fi hervi 16,- Oakhur sexville' 14 d P C Wisner I ollin oc k eek 25, - - - I I 119 IE 2 uanicasi ee A 7 /'Akron i Pas ill e 13 ung airgrovi@ reel Jam La orte -54 Gilford e Iva rr I d Shattuckvil eese a usvift W W7t SAGN R ahi ega@ a ern ork --Shields RN iville 12 I tz, ranke r Gera as ar ikefield- G ri 64 Irt - A kt@ rankerimut Jun tz,., Nelson Tuscola St Charfes sTers Milline )n@ @-Brant lMqDonou h Mar art-' Spri "In rch RL gs Fostoria[ rt M orsevillel or a e.. Chesani g Farrand, Te tter Lake r M-o n t ro s e T_hetfd, 4 ay an 57 r Come Of C, 14 RA 0 @Isville- hag, Me i.n Las a reent Cr ek. % Mo t "s Lot r p. 705 t _LLI CARROLLTON COASTAL MWAGEMFM PLAN 593 f 1-36 31 ---7- ....... 44 q !85 4,. J - - - - - - - - ly 587 SHE 594 ;(n L-j A 0 I Q1 - rHj Bs St. axthe*wsSch-.@ 41 iah Sch Zil'Wdukee: P ROA C? .......... .... ...... STUDY:* *\AREA .......... . "@k R R 0 L T 0 Ni Gnffi@ Sch @jr High Sch A. Al . . . . . .. ... . @j a v", n, 590 CA rollt6n --Ew sr pt M. 51 IT V 0 Z_2@1@ADCL-LAWN ST . . . . . . . . . . . . St hophat.Sch J: 7- z -- A- HR@-q rx- Nfer3hon Sth z u L ... . ... .. .............. Beth. lm Seb y- CH r q Eddy J, h!ehemSch M st lbseph Sch r.zz Sandpit 7 lz A- St,;.e sch i WA 06 WCR T-l-, 3 --F AW q d -10H-s2l@ -I- ---K nh .7 45 -L!, Ei, 1-A --- , 1-1 ;@4 LJON VIEWS OF SAGINAW. a RIVER IN'CARRO PRINT 4 A ROJE@' ANS4043MEN CARROLLTON TOWNSHIP COASTAL MANAGEMENT PLANNING P T PART 1: COASTAL AREA INVENTORY PART I: COASTAL AREA INVENTORY This part of the study includes a detailed examination of the principal characteristics of the coastal planning area, The study focuses' on essentially five areas of. interest.- 'Th ese are land use,' transportation linkage and urban design, natural resource limits, the overall structure of the area through a plan view and the neighborhood -recreation business markets. Each of these is individually discussea'in this part. in addition, there is a *b rief discussion of the implica:tions or key conditions in tormulating a general development pian. Th6se implications generally look for the opportunities afforded by conditions as well as the limitations that may be impose d by the same conditions. The function of this part or the study is to, present a comprehensive, quantified and rational base on wh3-ch. to. build the qrc@ci'sions and plans. Each of the five areas ot. interest arediscussed below.; A. Existing.Area Land Use Inventory and Trends' A land use inventory was,,conductect according to the Michigan Resource Inventory Act specifications so that the resource is consistent with the statewide system. The land use inventory is portrayed on the tollowing fold-out maps. Theresults of this inventory can also be summarized as follows: Approximate of Land Use Classification Acres Total Area 113 Single/Two Family 22.8% 7.9% 12 Commercial, Services, 9.4 3. 3 Institutional 124 Secondary Neighborhood 2.3 0.8 Business 126 Institutional 0.5 0.2 13 Industrial 143.9 49.9 146 Utilities 1.2 0.4 19 Open Land, Others 14.2 4.9 31 Herbaceous Land 50.4 17.5 41 Deciduous-Cover 26.9 9. 3 51 Stream, Waterway -- -- 621 Aquatic Bed Wetland 16.9 5.8 TOTAL 288. 5 100.0 Source: Field Survey, July 1983 An examination, of this data indicates two conditions tend to prevail. Either the land is rather intensively developed with large, complex uses or is rather-sparsely.developed. The map also shows that the two principal areas of undeveloped property are at the foot of, Shattuck Road at the Sagginaw River and in the northeasternmost part of the Township and study areas. It should be noted that none of the study area is natural in the sense that the topography and biota resembles pre-civilised conditions. Virtually the entire riverfront has had extensive land filling, historic development and river dredging. 0.0 .0 IV 19 rn 53 13 13 wo 0 C7 .19 0 0 19 c::j 13 tA Oil 13 ..,-LAND US AP CARROLLI 2 a A A-AL.L.L.--i j loot ADIS, N ov 1.9 Ilk\ 31 1, 910 0 C] OUO 44,91 104 CARR LTON RD. 24 .............................. SA GINAW RIVER 41 41 LAND 'USE MAP CARROL ME h] I Hill to I Trends in the lana uses along the river have been qenerally stable over the past decade in terms of the classifications of operating businesses. One. business changed ownership and became a major scrap yard (Surath-Luntz) insItead of the former Ogelbay Norton Co. Dock. Another, the now Pillsbury elevator had a major expansion in 1980. otherwise changes have been very minor. A major potential change would be the construction of a Shattuck-Washington Bridge across, the Saginaw River. Such a bridge could carry up to 22,000 trips per day. This would tend to make Shattuck Road, ana its intersection with Carrollton Road in particular, more abenable to highway-orientea consumer retail and services. Although the bridge is considered a local priority, the complexity of its design, construction and especially its cost make it probable that it is at least ten years into the future. B. Transportation Linkage Railroads The Carrollton Township coastal area Is an intensive location of transportation corridors, intermocial transfers points, and terminal operations.. 'The key transortation characteristics incluae these railroad tracks- -Grana Trunk Western railroad tracks that essentially parallel the the Sagqinaw River and include numerous sidings. Basically it is a double track system with one set of tracks (the easternmost) originally operated by Penn Central. The tracks weave as does Carrollton Roaa so that they intersect twice. Chessie System railroad tracks cut a cross the southernmost portion of tne coastal area including a Saginaw River railroad bridge that is no lonqer opened for routine river traffic and 'is thus essentially the southernmost terminus of the coastal area'. These tracks do intersect the Grand Trunk Westerntracks. Streets and Roads Street and highway circulation is also important in the coastal area. The major.. streets and highways include these:. -Carrollton Road is an all-weather county primary road that is classified as a principal atterial-on-Saginaw County planning ana Township planning documents. it is primarily a track and auto corriaor for the major commercial and industrial-activities along the river, but has important connections near the 1-75 freeway-City of Zilwaukee interchange. It is a two lane,' asphalt road,with shoulaers rather than curb and gutter. It carries.an average daily traffic volume of 1,700 vehicles south of Shattuck and 2,160 vehicles north of Sherman.- The average daily traffic -at Mapleridge is approcimately 6,500 vehicles. It has a- very,high percentage of trucks (estimated At about 35%). There are 3 railroad crossings of the road in the Carrollton Township.. -Shattuck-Road enters the. coastal area from the west and terminates at- Carrollton Road,. It is a,principal arterial that carries 6,000 vehicles east of Michigan Avenue. Shattuck is a two lane asphalt surfaced road. -Weiss Street is a minor arterial that also enters the coastal zone .from the west and terminates at Carrollton Road. It is located at the extreme southern edge of the township at the Saginaw City Limits. Its trafic is estimated at about 1,200 vehicles per day. 7Mapleridge Road is a county primary road and minor, arterial in Carrollton Township. At its intersection with Carrollton Road it is the only site. of- atraffic signal in the coastal zone It- is also unique in that it is the Carrollton connection for the only road crossing of-the Saginaw River in the Township. It connects to the Sixth Street Bridge and the Fifth-Sixth one-way system in the City across the river. The bridge carries 7,200 vehicles per day and is a swing-span bridge dating front the 1890's. -Sherman Road connects with Carrollton Township-near the northern edge of the coastal area. This low-volume, two-lane asphalt road is county primary road that functions as a collector that connects with Schust and Tittabawassee Roads in the City of Zilwaukee. The roads that connect Carrollton to -the rest of the metropolitan, area are Weiss, Shattuck, Tittabawassee and Sixth-Maplerige all-of which terminate at or- intersect-Carrollton Road. Close connection to the 1-75 freeway is provided by Carrollton and Tittabawassee Roads-while Weiss ana Michigan 4 Avenue provide good access to the 1-675 freeway.' Riverport. The only other major transportation system that impacts the coastal area is riverport traffic on the Saginaw River. The port is.used-principaliy for agricultural grains, stones and aggregate, sand and' agricultural products. Between 1980 and 1981 the number at. ships entering the port declined. Foreign vessels of oceanic capacity numbered eight-in 1981, while 63 Lakers entered the port. Ten foregn ships and 72 lakers entered the port in 1980. Shipments of-, coa1 and grain- declined, to., a level of 30.9 million tons and 18.3 million tons,, 'respectively. Iron ore. tonnage increased from 66.6 million 'tons in 1980 to 74.4 million tons in 1981. A study, of the development potential for the Saginaw River Port predicts that 6,000,OO0 cargo tons annually could be shipped, by the year 2000, and that tonnage could double again by the year 2020. These predictions are based or, the assumption that the Bay, channel depth will be increased and that additional grain, fertilizer and pellet handling facilitics will be provided. The U.S. Department of Transportation cantinues to maintain the Saginaw River Dredging Project. the Army Carps at Engineers is responsible for the annual dredging from Middle Ground in the Saginaw Bay, upstream to the Sixth Street Bride in Saginaw. The authorized project depth is 27 feet tron. Middle Ground to the mouth, 26 teet upstream to the Mackinaw Railway Bridge, 25 feet to the Penn Central Bridge and 22 feet to the Chesapeake and Ohio Bridge in Saginaw. The major river port terminals in Carrollton Township ,are listed from northernmost to southernmost below: -Surath-Luntz Scrap with approximately 1,000 lineal feet of channel and dock frontage. -Huron Cement, Division of, National Gypsum with about 500 lineal feet of frontage. -Pillsbury Edible Protein Division Grain Elevator with an estimated. 800 lineal feet of channel frontage. -Saginaw Asphalt Pavinq Company Stone Dock has a channel frontage of 700 lineal feet., -Nickocemus Oil Company with Marathon Oil has a tank-storage area of about 7 acres with about 500. feet of frontage.' -Schaefer- Chemical Products Company with nearly 600 feet of frontage for agricultural- chemicals. -Carrollton Concrete Products' sand and stone terminal with more then 1,500 lineal feet of frontage. The "property" is actually owned by two seperate corporations and one is used for an asphalt plant and-another for a concrete plant. Other river shipping terminals in the city ot Saginaw include Central Founary, DiVision ot General Motors, Agrico Fertilizer, Saginaw Rock Products, and the City of Saginaw salt storage site., The Sixth Street Bridge opened for river traffic 124 times during the 1982 shipping season. The shipping season generally runs from may to November each year. with the Central Founory Division discontinuing use of the "Niagara" sand sucking ship for its purposes, the openings of the Sixth Street Bridge and total river traffic ate expected to decline significantly. A map outling the basic transportation corridors ana terminals follows this page. MLLM-1 I.!-- al KI'ILIXI I ME I McCARTY INET IINALS su Z SCRAP Yl'M CENIENT U 'd I'LSBURY ELEVATOR GINI-A ASPHALT LEGEND SAAT-Tuc CKODENIUS 01 CO FER CHLMICAL PHALT PIANT COUNTY PRIMARY 0 rHER. ARTERIALS LLTONi CONICRETEL., LOCAL COLLECTORS RAILROADS RIVER PORT FRONTAGE CARROLLTON TOWNSHIP TRANSPORTATION SYSTEM Design impact The intensity of these, transportation terminals in the river, the railroad tracks, the truck route and major industrial character make Carrollton Road a very stark corridor. From an urban design standpoint it has several major problems as follows. -A relatively narrow (generally 66') right-of-way directly boordered by an adjacent raiiroad Right-of-way most of its length-. -Several -railroad intersections that require skewering the road approaches ana making for awkward grades. In addition there are a number of drive 'approaches and areas'-where geometrqics are dificult for trucks and goods being moved. -Intense land uses that virtually "spill over" into the right-of-way in te rms. of land surf ace. -A fractured right-of-way visual pattern that includes non-road portions of the right-of-way being alternatively grass, gravel, paved, stone or weeds. -Very awkward cross-section of Carrollton Road through the Mapleridge Carrollton business area. -Generally a "hard" visual appearance, with major, large scale structures in close proximity to the right of way.. -Strong visual images from major overhead utility wires. A schematic commentary ot.the transportation design character of Carrollton Road is shown in Part' V of this report. Because of the limited right-of-way, anyh corridor berautification or urban design. will require a rather simple, direct and hardy system.. Some additional controls, however, may be possible over future private land development thru site-plan approval-. C. Natural: Resource Limits 'There are a number of significant natural resource and environmental limits in the coastal management area. The major limits identified include these: 7 The Saginaw River floodway and 100 year probability flood plain, dominate much of the coastal area. This provides limits on the potential future utilization of these areas. In general, recommendations will be based on the assumption that the-flood plain should normally be developed only with compatible, non-intensive uses. .-There -is a significant wetland located on the northern end of the coastal area., It supports a 20+ acre herbaceous cattail marsh. if possible, this wetland should be protected. -The only major wooded properties in the study area include the Carrolton Bar and some adjacent shore-lands. These woods.total less than an estimated twenty acres, and are otherwise isolated within an urban area. -The water quality or the Saginaw River itself is. a limiting factor. A 1977 study of the East Central Michigan Planning 'and Development Region identified the overall water quality as an index rating of 5.6, which is classified as "medium". The river is accordingly prodominatiy classified as "For Partial body Contact". The Michigan Department of Natural Resources has also issued a public health advisory reading "Do not eat any fish", for' the entire length of the Saginaw River. This is because or identified chemical contaminents. These do limit the extent and character of recreational use of the Saginaw River.. '.-Air quality in the area north of the Sixth Street bridge is currently designated as a "Not-Attainment Area for TotalSuspended Particulates, Primary Standard". However, during 1963 it is recommended by the Air J J Quality Division that this entire designation be eliminated. The entire coastal zone area, would still be a "Non-Attainment Area for Total Suspended Particulates, Secondary Standard". This is principally because of the foundries across the river, but Pillsbury in Carrollton has been cited as a contributor to the problem. During 1983, Pillsbury initiated additional steps to control its particular contribution. -Noise is a major factor for approximately the northern-third of the coastal area. The noise comes from across the Saginaw River in the City of Saginaw. The source is the large nodular iron foundary. As actual decibel reading was not made, but it-is clear and continuous. In addition, coordination was made with the Michigan Natural Features Inventory Program or the Michigan Department of Natural Resources as well as local research to determine the composition and character of the aquatic biota, wetland and common vegetation and wildlife of the area. the results of that inquiry ana research are included in an appendix listing. It should be noted, however that no known threatened or endangered species live in or frequently visit the coastal area. D. Plan View of the Area The total area of the coastal area in Carrollton Township is approximately 300 acres along approximately 13,700' of Saginaw River frontage. The area., is indicated earlier -is diverse with residential, commercial, industrial and open land-uses. On following-map, the key land uses and structures are identified Generally the parcels west of Carrollton Road are smaller and more numerous while the riverfront parcels are larger, most are large enough accomodate docks. Review of Unused Parcels As can be seen, there are two major parcels that are not used for any urban purposes. These two- parcels both are located on the river. The northernmost parcel (actually 2 parcels) is actuaily located off of Seaway Drive, which in an access road paralleling Carrollton Road. It is a large area containing an estimate d 82 acres with about 2,200' of' frontage along Seaway Drive and 3,500' of river frontage. This area also includes the Carrollton Bar which includes about 18 acres of that land with about 9,800' of its own river bank. The-. bar (island) is principally wooded with wetland vegetation including willows, sycamore, swamp white oak, white cedar and black ash trees. The mainland has an estimated 20-25 acres of cattail marsh, 25 acres of grassland and brush and 3 acres of similar wetland woods. The shipping channel for the Saginaw River is east of the bar so that the 100' + channel between the bar and mainland does not support shipping or riverside docks. Both the bar and the riverbank for a depth of several hundred feet appear to have been used for deposit of river-dredging spoils several decades ago. Several cable tie-ups remain on the eastern shore of the bar. The site does not have immediate access -to any municipal water or sanitary sewers. The cattail marsh could be described as a major wetlands area that is environmentally sensitive. The parcel is owneaby the adjacent Surath-Luntz Scrap Yard. The second open space area on the river is an approximate 5 acre parcel on .Carrollton Road at the terminus of Shattuck Road. This is a semi-maintained grassland with a number. of individual, trees all it. It, has an almost park-like atmosphere to it. A railrroad track separates the parcel from Carrollton Road. The parcel, though', would be at least partly required for the alignment of a proposed Shattuck Road bascule beridge across the Saginaw River. The long-planned bridge will replace the now functionally-obsolete Sixth Street bridge. This' parcel is currently owned by the Saginaw County Road Commission. There are a number or smaller unused parcels 'in the coastal area, but these do not have access to the river and are too small to be represent unusual development opportunities. These parcels are most appropriate for small freestanding commercial or small industrial development, although some could be used for residential infill. 10 One small parcel or the southwest quadrant of the Sixth Street Bridge is not large or significant in character, but it has very high visibility. This parcel could be attractively landscaped for a visual park. The parcel is at an entry point across the river and could be an attractive visual welcome to the Township. Key Image Makers: Negative Elements The Carrollton Road corridor and riverbank have very strong visual image makers. Some are positive, but some are negative.. Among the key negative elements are these: -The area is crisscrossed and strung with a large number or utility poles and lines that are an omnipresent visual interference. This is no doubt inevitable because of the higher energy users, but it remains a major negative element. -Railroad tracks and appurtenances also crisscrossed string-out along the corridors. The tracks themselves may create visual distractions, but also the generally unattractive and unmaintained right-of-way is the dominant negative element. -The actual land uses along the river and road are also major factors. Many of these are large, visually dominating structures, including a grain elevator, a cement terminal, two asphalt plants, a concrete mixing plant, a scrap yard, petroleum storage yards, and several large storage buildings. These are not necessarily unattractive. if painted bright colors, and kept reasonable clean or otherwise maintained will, they can be visually interesting images of an industrialized and urban society. -The pavement, curb and sidewalk's through the Carrollton-Sixth business area are also negative. The road is wide enough but is high-crowned above sidewalk level, has substandard curbing and belies an ad hoc development of the facilities. Some of these negative elements cannot be readily controlled, while some others can, but at a relatively high capital investment. Key image Makers: Assets and Opportunities While the negative elements in the coastal area area are strong and significant; there are a number of important assets and opportunities in the area. These inciude the following: -The Carrollton Bar and the nearby wetlands are interesting natural areas that have an unspoiled character but are nonetheless within a large a large urban area. With some roadside landscaping the area could better active from Carrollton Road and Seaway Drive. It is also a major landmark tor Saginaw River boaters. -The open space on Carrollton Road at Shattuck, road provides an attractive Vista down to the river. with routine maintenance it could be an excellent asset. -There are a few architectural landmarks that are significant. Perhaps the most attractive is the historic Cheasepeake and Ohio Recreation building on Carrollton Road just north of Weiss Street. Thouqh west of the railroad and technically outside the area, it is. an important landmark on the coastal corridor. A second, but less imposing landmark, is the old mershon Band-saw Building. The relatively clean, simple structure is not especially unique architecturally, but it is historic as it was the headquarters for the Mershon Lumber Sawmill, and is the site where the band-cutting saw was developed and had a major impact on the lumber era technology. The building has high visibility and could be set off to provide an interesting vista for northbound traffic. -A number of smaller structures are considerably less significant in size and history, but provide some interest. These include the "Miershon" railroad tower just north of Weiss and an interestingly, shaped old gas station at the southeast quadrant or the Carrollton and Mapleridge intersection. - Some or the large industrial-terminal structures referenced earlier are also major land marks that create visual interest because or their scale and character. These include the Pillsbury elevator, the Michigan Sugar Company and the Huron Cement Terminal. A photographic summary of these major image-makers is included in Part V of this report. 12 %DEC CtXb U L Old Pere Marquette Railroad Station. NL%@ 7 Existing Mershon Railroad Tower- Former Mershon Saw Company HISTORICAL/ARCHITECTURAL LWIaRKS E. Neighborhood-Recreation Business Markets The Carrollton Road and Mapleridge Road intersection was once the dominant consumer business area of Carrollton. Although since eclipsed by the Skyway Plaza on North Michigan Avenue, it still remains the principal neighborhood trading area for some of the residential area's that developed early in Carrollton's history. In addition to serving nearby residential. areas, these businesses also serve some of the employees in nearby service and industrial operations. The businesses in the Carrollton-Mapleridge Road areas can generally be categorized as a consumer convenience and include small-scale, independent business. The trade area for this neighborhood center was defined by determining the location of other nearby nieghborhood center centers, defining natural, manmade and political boundaries that impact these centers. The approximate primary market area for the Carrollton-Mapleridge trade area is shown on the following map. A consumer business inventory follows that map. The business inventory is a summary of the trade area characteristics for the Carrollton-Mapleridge neighborhood business district. Generally the area can be characterized as having a higher percentage or minorities, lower housing values and lower income levels than the township as a whole or the County. The result is that trade must focus on the more basic food, shelter and clothing needs. 13 ----- ------- ...... ..... f 7 ROA Z 7 W W h 6 Ztt ce@ d Tank e. e VfE_ J8 V r @YLO sr C, 'k W 7 A# DOWL U1 Z d t )A RETAIL TRADE AREAS ........... 4V ommunity az. A C -wide (Skyway Pl'*a) Z' Sandpit /0' Neighborhood Areas: U -'A Carrollton-Mapleridge 600 Sandpit- B Shattuck @ North Michigan th 13 Di @, I- I B C Skyway Plaza 4, 0", D N orth Michigan @ Schust "IA: m ScV4"., B-4 594- stj* ph Beg, Sandpi E Zilwaukee (Johnson Street)@ r ST r 91 I-I n MAPLERIDGE-CARROLLTON ROAD TRADE AREA CONSUOMER,RETAIL AND BUSINESS INVENTORY Carrollton Coastal Planning Project Estimated Store Name/Classification #sq. ft. Vacant For Sale 400 Kawasaki Cycle 1,000 Dominic's Plantation (Bar) 1,200 Rea's Furniture Stripping 800 Convenience market 2,600 Gas Station 600 Carrollton Bar 3,000 Maxa's Galley Restaurant 2,000 For Rent 800 Painters Local 1267 400 Barber Shop 400 Cook's Auto Body 600 Carrollton hardware 2,400 Williamson Insurance Agency 600 Nickodemas Marathan Gas 600 Ware's Bike Shop 1,200 U. S. Post Office 800 (Just outside of trade area) CARROLLTON TOWNSHIP COASTAL MANAGEMENT PLANNING PROJECT SUMMARY OF TRADE AREA CHARACTERISTICS Carrollton- Carrollton Saginaw Mapleridge Area Township County population 7,482. 228,059 Blacks.. 24% 7% 16% Spanish 17% 7% 5% Housing Units 407 2,506 79,437-- Owner .305@ 1,907 56,446 Renter 70 480 19,670', owner Value @21,200 $33,600 $40,600 householc Income -$13, 0 38 $@0, 665'... $19,726 Total uis.posable Income Carroiiton-mapl:eridge market Area householo Income $13,038 Occupiect Units 375 $4,889,250 *Carrolltan-Mapieridge income contputea arici bdSeQ. On an aSSUMtQ relationship between owner value and household income., There is no special commercial recreation business in the area. however, the Carrollton hardware does include sales. ot fishing licenses and tackle among its inventory. Live bait, generally crawlers is also seasonably available at some stores or Carrollton Roaa homes. An additional chart analyzes, the trade area for its theoretical market potential. An examination of the chart demonistrates a marginal to moaest potential. Perhaps most promising alternative might be for an addition al convenience store -most likely a locally-owned rather than a franchised operation. At this time there is no reason to anticipate any expansion ot the supplementary recreation business. Such recreation business would have increased potential with a boat launch in the area, That might contribute to marine fuel sales at the gas station and expanaeo bait/tackle sales. However, the likeiihood is that the busines's activity increases would most likely be. handled as supplementary to existing businesses rather than generate additional businesses. 14 MAPLER I DGI-CARROLLTON TRADE AREA CONSUMER RETAIL AND SERVICE BUSINESS POTENTIAL Estimated % of@ Disposable Market Potent i a I Exi s't I ng New Store ncoine Potential Stores Stores Pc>tent i a I Food at Home 16.0% 782,280 2 convenience markets I Food Away 4.1% 200)1459 1 + restaurant 0 Men's/Boys Clothinq 97,7B@ 1 ess 1-han 1 0 Women s/G i F I sC I bth.i nq 3.0% 146,676 less t a h n 0 0 Pha rifla c.e uficals 4.5% 220,016 less than, to.1 smal 1 .0 .1 drug store Hardware 1.5% 73,339 less than 1 1 0 Barber 25.,000 j ust un der I shop 0 Beaufy 50,000 1 + shops 0 1 wit PART: 11 COMMUNITY PARTICIPATION PART II: COMMUNITY PARTICIPATION An important part of this study is to maximize the participation of the community in the process of planning for future improvements. This includes the general public, the area residents, corridor businesses and related public agencies. But in order to increase the Potential for implententation of the recommendations, particular efforts were made to meet with a number of the key propery owners. The participation process included letters, survey forms that solicited participation from the various related public and quasi-public agencies: letters to property owners i ncluding the survey form; ana a newspaper advetise'ment for a public hearing. The related ayencies and property owners also received a notice to the public hearing in the mail. The results of the participaLion frora each of these methods is summarized on the toilowing pages. "J _eY A. Coordination with Related Agencies Twelve agencies were specifically contacted regarding the program. These included four county government agencies, the planning region, two adjacent cities, two state agencies two federal agencies and two quasi-public organizations. The specific agencies and the transmittal letter are included in the apenaix. Key findings and statements from these contacts are: -Several noted that Carrollton Road is an economically important "back yard" of the urban area that is not attractive, is often dusty and noisy, and nokt appropriate for residential or cultural purposes. The area is nonetheless an economically essential and a valuable part of the community. These respondents accordingly raised skepticism regarding the need for or ability to undertake beautific4tion. -There was some concurrence with the potential for passive recreation and nature conservation for the Carrollton Bar and Seaway Drive area. It was noted that the area is a large, env ironmentally sensitive location in the midst of an urban community@ A possible boat launch was also noted as being well-locateq relative to the other boat launches on the Saginaw River: it is-about half-way between the Wickes Park and Veterans Memorial Park launches and is on the opposite side of the river. -The I importance of preserving the potential for additional marine terminal development was,undersccrec.l.as well.' Carrollton Township represents the greatest location,of potential ritulti-owriership, additional marine terminals in urban,Saginaw. -None of the responaents.incticatea major potential tor.commercial recreation based on Sag-.,naw River access. Not surprisingly, the answers tended to reflect the particular role of the agency that responded. Parks agencies responded positively in that regard while an economic agency viewed the area -frow its perspective. There is some contradiction in the results, but they should be, reqoncileable by careful planning. 16 B. Property Owner,Contacts All Carrollton Road property owners in the study area were contacted by nail .with a survey form. In addition, the planning consultant made visits with some of these proper ty owners. All of the major businessess were contacted by phone it possible. The survey was.returned by ten of the property owners. Eight respondents Were,businessmen a nd two were residents. The form and results are included in the appendix. The most significant conclusions frOM responses can be summarized as:' -Ali responding property owners felt their use ot the property is appropriate and successful and is likely to.continue for the toreseable future -The eight businesses employ 108 full-time and 23 part-time employees. -Six proposed .9oritinuning the current use of the property without change while two want to expand on their existing property. Only one owner (residential) proposed discontinuing the current use. -Four wanted no future assistance. from the Township. Better storm drainage,, beautification of the road and road improveLients were favored by a minority. Four wanted to see an industrial-commercial development district for tax relief. minor interest was expressed in eliminating eye sores and improving po.Lice and'fire protection. -Eigh t respondents supported slimple, dir ect, easily maintained aesthetic and visual improvements for Carrollton., One felt it inappropriate and one did not respond. -Seven cited public recreational opportunities and public access to the the Saginaw River as being important. Two respondent *s specifically mentioned the.roaa commission property as being a potential site., Two were opposed to recreation or public access in-the area and one did not respond to the question. 17 C. Community Participation beminar Because of conflicts with other schedules the public seminar was held later in the process. The meeting was held on August 22, 1983. The seminar was in the form of a public hearing.t hat included included a presentation by the planning consultant. He presented the purpose of the study; the current conditions and the draft general development plan . The Township Planning Commission attended the meeting along with approximately 35 citizens. The, principal comments an.alresponses at the public hearing were: -Flood plain problems are very major at the propperties cited as appropriate for recreation according to'one property owner. The consultant agreed that a flooding condition exists and said-that: the recreation would be passive in nature such as trails, picnic areas, nature study and other activities and facilities not seriously impactea by flooding. --A -.resident inquired as to the size of the Carrollton Bar in acres. The consulltant saJLU measurement depends on whether associatea wetlands are included and the time of year, but that the 20 acres range is appropriate. -One citizen commented that it is possible-to pian, but how could the plans be implemented? It was explained that the Michigan Land Trust Fund is being sclicited to acquire the Carrollton Bar and wetlands. other state and federal grants are still ava :ilable as are private trusts and service groups -Ln addition to Township resources, which are limi-Eed. -Carrollton Road is so unattractive that parks may also be unattractive to potential users according to another citizen. The beauti'tication plans propos ea,can be simple, relatively inexpensive and ettective according to the consultant. With beautification the. access to the parks can be more attractive. Several implementation techniques were explained. 18 A Department of Natural Resources official also elaborated on the techniques permits required and implementation ot such plans. He observed that the proposals suggested are consistent with successful programs elsewhere. A more cletailea "Summary of Public hearing Comments" is incluaea in the Appendix. Also included in the Appendix are some of the comments from interviewed agencies and property owners. Most of the recreation access focused on the wetlancts off Seaway Drive and Carrollton Bar as well as the road commission property at, Shattuck Road. The residents supported that anci also supported the idea of public access to the river for boaters. The total participation otterrea through agency coordination, property,owner involvement and the conmunity participation seminar were then digestea and reviewea.by the planning commission ana@the consultant. As a result, a sythesis was maae for this policy input and the development goals were definea. 119 D. Synthesis ot PoliSy Input and Development Goals, In examining the overall.character of comMunity participation several key policy areas emerged as important. One is the policy issue of aaditional marine terminal and riverport development. The input sugge,%ts that existing marine terminal is expected to continue, providing user charges do not come about and providing dredging continues. Major expansion, however, is not contemplated. This is consistent with the conclusions of other.studies as well. The input does support maintenance of existing marine terminal and riverportfacilities. A second policy issue can be described as recreation access to the river. Both the public hearing ana several ot -the survey responses indicated strong support for the concept.- The greatest-attention.at the public hearing was on the Seaway Drive/Carrollton Bar area while the surveys mentionect the Road Commission property at the terminus of Shattuck Road. It was a consensus that passive recreation inciuding trails, nature areas ana picnic areas were most appropriate. Thert@ was also general support for a boat launch in the riverfront area. still another major policy issue was beautification of Carrollton Road. Support for such improvements was very strong at the 'public hearing and through the survey. While it was strongly encorsea, some residents ,expressed doubt that implementation could result. The potential issue of commercial development for retail ana service or for marine commercial was not a matter of key. concern with the public meeting or 20 survey responcents. This reinforces the moaest trade market potential identified earlier in this study. Considering these issues, past goals identified is, the Township's comprehensive planning program ana the directions suggested during imput. A goal with a subordinate set of objectives and strategies for dealing with. the study area are defined as follows: GOAL Provide a balanced use of the riverfront that permits marine terminal and related industrial and commercial uses in conjunction with well-designed recreation access facilities for fishing and boating. OBJECTIVES, Maximize the potential uses of the river for both economic and recreation purposes. Encourage new developments that remove conflicting uses and provide buffering landscape themes to minimize visual impact, Improve the appearance of the Carrollton Road corridor. STRATEGIES - Make regulatory aria economic incentives available to business development in the coastal area. - Provide incentives for adaitional marine terminal uses - support a rivertront park incorporating boat access, picnic area, tishing pier aria similar appropriate''uses. - Revise ordinances to require landscapiLng and site plans for butters and beautification. 21 \V t A.K. ;OF PART III: GENERAL DEVELOPMENT PLAN IS PART III: COASTAL AREA GENERAL DEVELOPMENT PLAN With an understanding of current conditions and a general policy direction outlined by the participation process, it is now possible to develop a plan for Carrollton's coastal area. The first aspect ot developing the plan is an examination of vacant parcels This is toremost because 'the vacant parcels are most subject to rapid change. A. Vacant Parcel Options There are a number of significant vacant parcels or potentially underutilized parcels previously indentified in the project area. These are: 1. Several descriptions that make up,an area aescribea as Carrollton Bar and Nearby Wetlands Area. This area has essentially no existing manmaae structures. 2. The Shattuck-Carrollton Roaa riverfront parcel located on the river also has no significant manmade features on it. 3. Immediate river frontage for the MacArthur Roofing and Schaeter Chemical parcels are not utilized even though the road trontage is developed and currently used. 4. Two separate parcels known as the Carrollton Concrete property are not vacant, but are usea tor aggiegate storage, an asphalt plant core sana storage, ana concrete mixing. However, the property is underutilized, easily clearea and potentially available shoula these activities cease. Each of these parcels is shown on the following map ana is turther analyzed on a subsequent charrt that suggests the primary optional uses. The optional uses are primarily the potential tor recreation or marine terminal. The Carrollton Concrete area parcels could be use in a number of difterent ways 22 CARROLLTON TWP- ES ES El ES L EE Irl Ir T M ES M M S MMM ME 9EEMM SER ME 1@I I =1 EE3 Ea t MCAPTI- I. Jf ... .... .. eb@ P 77.1 r @j Fyl@ T:j Q@ a! a LEI- '177' AT, L lj@: -Tim ME HIM F_ ..... ....... .... .... ........I... ............. jo C'M'M@ VACANT PARCELS Carrollton Bar Area including wetlandE along Seaway Drive Shattuck-Carrollton Road Site owned bN County Road Commission 3 -Various Riverfront Parcels 4 -Carrollton Concrete Area Parcelg OPTIONAL USES FOR VACANT PARCELS IN THE COASTAL AREA CURRENT POTENTIAL OPTIONAL RIVER CONDITIONS/ USES PARCEL ACRES FRONTAGE USE LIMITATIONS OPPORTUNITIES I n add I r I on to current' uses) I Carrollton 80 1,500 Bar or Island Is Wetla 'nds should not Site has Inter- Passive recreation Bar and wooded, about 50% be disrupted; access esting cattail ano environmental Nearby of Seaway Drive to bar would require marsh v 'egetatIon; area with trails Wetlands property is wet- 1001 + bridge; ship- west channel Interpretive center, Area lands, 5% wooded ping access to west could be useful picnic areas,@wlt Ih and 45% field.. channel not available; for small boat or without fairly strong nolse at access; Interest- Boat launch site'from-foundry Ing natural area West channel marina In midst of urban development; 2.' Shattuck 5 5001 Semi-maintained Future extensionand Attractive, pas1r_ Sma I I riverfront Carrollton gra5s, several bridge on Shattuck toral parcel for park -for picnics free- standing Road to Flfth@Sixth passive park; Boat launch trees on site W. Washi:'ngton Roads might support Part of "Corridor in Saginaw would re- small site for Park" quire this parcel; boat launching. Bridge subject to consider- able flooding. 3. MacArthur 7 1,500 Unused or very Carrollton Road Could be useful - Port of "Corridor Schaefer informal parking. frontage would re- as a ri.verfront Park" River Not used for Main with operating corridor for - Future marine Frontage shippin-g terminal. businesses, preclud- trails, picnics terminal ing road access; not and view.ing. I arge wnough for parking or structures. 4. Carrollton 40 .1,500, Landtused for Not available if ship@ Large parcel with. Future marine Concrete aggregate terminal ping channeFremains. multiple use poten- terminal property and storage and open and concrete tial relationship Private amusement concrete mixing operations continue; with proposed City @Xtension of Sagim, plant. some wet areas-on of Saginaw river- sawmi I I project site. front recreation Iublic park and Immediately to part of "Corridor south: Park" Those parcels that are, appropriate for possible recreational uses could be public or even private in some cases. Private contmercial@recrea@ion woul,a focus on a pay boat launch-boat service-retail facility or even a marina. It is also possible that a public facility could have a commercial concession. Several'uses are ruled out in some areas. The northern half of the study area,includes some major industrial-terminal uses, has vacant land with sensitive wetlands, and is impacted by foundry noise. For these reasons, the area is not considered for any residential or institutional purposes.- The wetlands area.is also not appropriate for marine terminal- or industrial development, The southern.. half of the area also has some intensive terminal, processing and,industrial operations that make residential or institutional improvements unlikely candidates for utilization. Consequently, marine terminal, commercial recreation and public parks are the dor.,inant potential uses tor these vacant parceis. To determine what are the pi@iorities for utilization of each parcel, they, were examined in terms of the appropriateness of each of the cited options by examining the physica'. site-conditions; community perspective; property owner perceptions; and th- consultants appraisal of potential market need S. These are then reviewed a--id a consensus gleaned. The potential market neeas as defined by the consuitant are essentially reflected in some of the subsequent elements in-tKis phase. The following chart suj-.imarizes the development of the best consensus options. 23 PRIMARY OPTIONAL USES OF VACANT PARCELS IN COASTAL AREA Referenced Phy@ical Site & Community Needs/ 6oals Property Owner Perceptions Potential, Market Most Appropriate Use Parcel(s) Envi ronmenta I Perspective Demand Recommended Cha@acteristics Site 1. Low intensity Long sought by local Use may be a6propriate @as Defined need fo r Low intensity, Carrollton public park- groups,as a potential no access -to shipping passive recreation passive recreation Bar-Seaway nature area; or park or recreation channe I in Township. Drive Area contro I I ed 1 s i te. Marina demand is marina devel. uncertain. Site.# 2. Public aesthetic Needed for future Maintain for future bridge Need for passive Bridge, right-of-way Shattuck- and passive park bridge/api5roach and approach use. parks and is dominant need, Carrollton potential. Flood right-of-way. recreation uses. Roads Site condition major. Site # 3. Are@j floods, no Community values are Owners not contacted, b ut No strong, dominantWOUld require River's docks in place, for corridor park, or must see benefit to accept need in market., careful , sensitive Edge Part no structure on for additional marine any change in status. May efforts to develop of Vari-6us land. or'industrial tax and resist any ch@inge -to quasi, for public use. Parcels. and employment. 1) Ub I i C. use. Site 4. Existing uses No strong community Prefers private sector use Marine terminal Concentrate efforts Carrollton for marine values apparent. but recogni7es limits for demand uncertain, on marine -terminal, Concrete terminal, stone marine terrQinal; alterns. industrial-distr. industrial , private Area dock, asphalt are for private marina or may be gpod, is recreation/amusement Parce I s &,cement plants p rivate recreation. receotive to pvte. use, or public park Current use. recreation. in that order. Some annual flooding. See map for shape and location of sites and parcels. Most appropriate use recommended by consultant and does not necessarily reflect support of individual property owners that own the parcels involVed. It should also be noted that some important changes in direction are possible for several of the parcels because of nearby de@velopments. For example, it it should be determined that a Shattuck Road bridge were not to be constructed for several decades or possibly not at all, that parcel is very attractive tar recreation.. If no other Carrollton' Road access is afforded to the river frontage of the MacArthur-Schaefer ChefiLical properties, it is not practical to consider a beautified r Iecreational use for them. Perhaps, the major parcels with a dramatic shift in potential use are the Carrollton Concrete area,properties. If the federal government were to cease financing all costs for dredging the Saginaw Ri.ver, then their potential as' marine terminal is-greatly air..-tinished. Furthermore', it a unique public D quasi-public recreational development now proposed immediately south of Carrollton Township in the City of Saginaw were to be successfuily realizea, then the site has excellent potential as a complementary coTL,mercial recreat-4-on-amusement facility. This is discussed further and conceptualizea in the following section. B. Further Commercial Deveiopment During the previous inventory anc Itini.-tial analysis, some general directions were apparent for commercial development. Perhaps foremost of these were: -convenience Store -Drug Store/Variety Store -Beauty Store Itshould be noted,however, that these potential developments have several characteristics that should be considered. one is that these are theoretical considerations based on the Carrollton-tiapleridge area being as 24 convenient and attractive as other centers. In tact, parking and aesthetics may be somewhat of a negative influence. Secondly, it should be noted that most of the potential for. these developments is marginal according to hypothetical minimums for such business. This means that there is little room for management error for an operator. It also means that the market is probably inadequate for franchises, Idevelopers and other outside interests that require a significant profit above and beyond salaries. The market may be profitable, though, for an individual entrepreneur who seeks primarily a satisfactory personal income. Thirdly, the market does not demonstrate encouraging long-term prospects for growth. The area has had a net decline in population since 1970 and even housing units in the immediate area have declined. Probably some new stability has been brought to the area.with recent block grant programs, but. actual growth 'has not emerged. Thus it is appropriate to also look "to attracting auto traffic tron, both Mapleridge and Carrollton Roads as part of any strategy. Even this, though, is endangered by the likely eventual closing and removal of the Sixth-Streelt Bridge. Finally, Carroliton'Townbhip has the Skyway Plaza comm unity shopping cente@r that is only one to two miles frofit the neighborhood residences and is in a position to offer retail services. That center, moreover, has not been particularly successful despite a good location, good access and plenty ot parking. Thus it tends to detract from. the possibility of building an exceptionally strong neighborhood business center in the coastal area. 2S Basea on these considerations it appears that the best efforts would be to concentrate on aevelopment for these enterprises: -An attractive convenience store that is stocked'in the more basic day-to-day neeas@that are consume Id by low-moaerate in@ome familites. -Strengthen the existing key businesses such as Maxals Galley and improve access and parking for existing business. -modernize the street intersecti.,on to permit better traffic flow and image in the area. To maximize the potential for these developments it is important to provide ready access to either or both Carrollton and Mapleridge Roads. It is also necessary to provide adequate parking and a clean appea. .rance. Commercial recreation was explorect as a possible 9rowth area. Specifically, consideration was given to a commercial marina, bait and tackle shop(s), boat ano accessory sales ana service and related materials. The marina exploration was not a detailed market analysis. 'It consistea proncipally ot investigating use trericis at existing marinas. The conclusion is that close access to the Saginaw bay is very important to most boaters, ana most especially sailboat enthusiasts. While an exceptional marina operation might be successtul, it would require carefully targeted marketing to power boaters, river fisherman and skiiers and other select groups. Even so, many in this group can @e satisfied wit h a high-quality boat ramp. 26 In the discussions with marina operations, none of the responding marinas indicated that they were at capacity and none reported a waiting list.. Most of these marinas were in the Bay City area. In Saginaw, the only private or public marina is Riverfront Marina on Lee Street off Niagara. It has a potential capacity of 80 boats with docks in for 60 boats. The docks are used to approximatly 90% capacity. It is an attractive basin off the river and would appear to be well operated. , Boaters from Rivertront Marina are about one to two hours from the Saginaw Bay and jus t a few minutes from the broad, though relatively shallow Shiawassee National %ildlite Refuge flats. Many of the boaster, though, use the Saginaw River itself for boating rather than the Bay or flats. Perhaps the depressed local economy affects the ability to fill these slips, as some marinas have had waiting lists in 'the past, though not the Saginaw marina. At any rate, current utilization would indicate that there is'not now sufficient market demand for additional marina slots. Furthermore, Riverfront Marina could tolerate a 57% increase in utilization berore ad ditional Saginaw slips are marketable. Accordingly, an additional marina is not recommended for immediate implementation. On a long-term basis, though, a marina could be appropriate. The Saginaw River is getting cleaner and the 'City of Saginaw is beautifying much of its river trontage. As the river continues to be -improved ana more attractions are tocusea an the river, it is quite conceivable that powerboaters can be attracted for an.additional marina. Discussions with state DNR officials indicate that one possible location for 27 a marina might be the west channel of the Saginaw River between the Carrollton Bar and the shore. This location might be acceptable for marina development into the river instead of -the otherwise preferred, but more expensive, alternative or constructing abasin off the river. This would enhance the economic feasibility for an eventual. marina. Without a marina base, much of the'related commercial activities tor. recreation are without a reaay. market. The existing modest, fishing tackle sales at the Carrollton Hardware may be adequate. The addition of a boat. launch facility, though,, could increase the potential' for such secondary sales related to existing business. one potential major change for the riverfront could be at the southernmost edge of the rivertront at the City ot Saginaw boundary. At that location the City intends to acquire more than forty acres of rivertront property. In cooperation with an existing quasi-public. agency, this site would' be developed into an educational, and visitor-oriented facility that 'could become a significant local tourist attraction. It this happened the immediately bordering tracts in Carrollton could be linked to that attraction with a bridge across the. inlet. A compatible recreation development including amusement activities could then he developed. This could also result in a potential long riverfront recreation corridor for walking and hiking from the Johnson Street Bridge north to Shattuck Road. The precise scale and character ot any such commercial recreation-amusement park would require a more precise understanding of the eventual City project and should be reevaluated when that is possible. 28 CARROLLTON TWP- F M-ES ES Eli L mmmm [fill 441 EE M EE EE E0 EN ES GG mmm ROM -7' IF ILI wm@ 4, @9 E, y'i t7@, J-T3 1@r 7 1 E L 4@ C7 o/ enti River's Edge lkw T".3- P oss j os affli rn Z r--7 us eme te P Site 0 00. ge City and'/ Carrollton Coastal Development Plan uasi- c REL.ATIONSHIP AND POTENTIAL OPPOURTUNITIES INN' emed, CARROLLTON WITH CITY TOURIST FACILITY LOCATED Possible ucationa Freeway ourist A rac io IMMEDIATELY SOUTH OF THE TOWNSHIP BOUNDARY LL LkTt Fan Access Conclusions and Recommendations for further Commercial Development It is recommended that commercial development in Carrollton Township be strengthened by environmental changes, by encouraging, some new business and by imphasizing businesses that are not consumer-sensitiVe, and possibly introducing a marketing theme for the area. Proposed environmental changes are as follows: 1. Beautify the Carrollton Road frontage per the preliminary design concepts in the following-chapter. 2. Improve available parking facilities in the area. 3. General program of building clean-up including painting and fix-up, new signs and landscaping. Encouraging new business could include: 1. An additional convenience market relatively close to the Carrolton-Mapleridge intersection near SIattuck. 2. Encourage service business that are not consumer sensitive including beauty shops, professional offices or, specialty retail. It may be appropriate to introduce a simple and inexpensive marketing there. A concept such as "Waterfront Corners" could be reenforceally some symbolic sIgnage and land or streetscaping in the area. The principal intent, though, is not so much to bring in new business: there really is no significant market eRtand for there. Rather-it is to maintain and strengthen the existing businesses. Significant growth would require additional residential development in the trade area, ana such growth has not occured for many years. 29 C. Context for Industrial-Marine Terminal Growth In order to examine the potential for additional marine terminal and industrial development along the Carrollton coastal zone, it was not necessary to initiate any new basic studies. A number of very useful studies have been completed for the Saginaw River seaport. The most recent and comprehensive study was the Saginaw River Port Development Study completed by consultants under a coastal zone management study, sponsored by the State ot Michigan. This study focused on marine terminal development, water-dependent industry and recreation. This study indicated that -based on some uncertain assumptions -there could be considerable marine terminal growth, primarily for grain, pellets, coal and fertilizers. Clearly agriculture is the dominant growth sector. Sand, stone and aggregates would have only modest growth and general cargo is unlikely. however, the study noted the problems of keeping the entire river channel open to Saginaw. They noted costs at dredging versus, benefits, possible future user fees, and environmentally sound disposal of dreage spoils. Accordingly, they recommended that new marine termianls, namely a grain elevator and a bulk terminal, be constructed in Bay City. Efforts for terminals such as Carrollton would then attempt to preserve and expand their existing facilities. The Saginaw Metropolitan Area Transportation Study is entitled Long-Range Transportation Plan. It synthesized the state port study and indicated 30 problems. for future growth. Study Director Jon B. Mersman said that the best potential marine terminal ot industrial site in Carrollton was possible use of the Carrollton Concrete area.properties. The East C entral Michiga@n Planning and Development Region in Saginaw had a number of publications that discuss 'the Saginaw River port, but does not detail its character or potential. No,. specitic conclusions or recommendations were made. A number of older studies were investigated for current relevance. These include a study of Economic Benefits"of Extension of the Navigation Season to Twelve Months for the Port of Bay @joun,@y for the 1976-80 Period, 1975, Saginaw Valley State College Department ot Economics and Michigan's Commerce Domestic and International, 1966, Michigan Department of Commerce. In general, it would appear that these studie's were based on conditions and assumptions that have not been maintained or realized.in actual practice. Port planning In the past would seem to have started from an optimistic perspective. It was also unable to torse@ impacts of shippling technology and equipment or of rail deregulatlon. The most comprehensive and most current study. ot the Saginaw River is certainly the Sagiriaw River Port Developmen-L Study. This does serve as the principal documentation for Carrollton's marine terminal potential. but n addition to this literature review, specific coordination was made with a number of knowledgeable authorities- Larry Karnes, Marine Transportation Planner for the Michigan Department of 31 TABLE 11- 1 TAMMATED room %"Tgvs @I fees c "Ill w a" lacm--SUIVETS To MAT. lots C0411SOLL104 D1VfWS FOSA S1AV&*O In rate A' 94961 LAKIS LOW WATER OATUN "OJECT 101MINS14K4 fLW21 tart ",ODLE a,"' Nifty" LITGT* DEPTO ISTAT. Lao OAKS M CHANNEL ...... " vot *Aft or SUNVIT IFEETI a, SuAnTER 10"wleATIEN Last IFECTI ENTRANCE CMANNEL J&.9 17.11 )v's 0-77:3-74 its 13.70 27 Imcoct to DUST 24 12.9 17.9 t4.8 4-77:4-70 200 6.47 to THEN" is 12SKITILLI TUSNIOG Datell, at-1, 16.1 04.1 5-76;4-76 200 2.27. 211 ESSINTILLI 11104100014 44230 22.6 13.1 10.4 1.3-70 $90 8.21 25 Imalect is GIN as Most '7:'.S_" Z at .1 71:5-TS 2 Toaact is A4111`41111 TURNS" SASIN :L:I: ":*, :.Be 22 TOIENCE we? S4 11.7 it-* 7.16:12-77 209 11.24 22 THEN" :: 1.01aftsIATIR =1 76 SUISSE 19.0 11.2 16.0 7.0-16:4-VI zoo 1.73 22 "coca to eta 67 TUFAI" 1AS40 98.7 96.0 IS.@ 4-?S;1.4-74 200 22 STU ST 1`10041" GASIN 12.0 14.6 10-71 41s* 22 VKKI To too 44 901i"a 19.6 16.7 Is it 10-11, I I IS.11 Is.8 12"o &*-TV '4 TWEN= TO CARROL, at- mallt-C"SlILI I" CO41" W 12410111411 1-2 C-1-11 1146t'@CU' I* A"" "WASN'T TABLE IV-1 HISTORICAL TRENDO TOTAL CARGO MOVEMENTS, SAGINAW PORTS, (in Short. Tons) Year Tons Year Tots 1978 3,173,573 5,683,261 1977 3,656,238 1960 5,575,660 1976 3,0 72, 473. 1959 5,291,34-6 1975 2,705,330 1958 4,309,886 1974 4,180,075 1957 4,810,845 1973 41095,979 1956 4,607 '686 1972 4,386,273 1955 4,510,663 1971 4,847,133 1954 3,609,397 1970 4,616.,434 1953 3,953,397 1969 5,098,710 1952 3,924,'084 1968 5,,228,842 1951 3,790,914 6,562,483 1950 4,213,650 1966 7,243,288 -1949 3,248,610 1965 7,003,601 1948 3,560,273 1964 5,874,886 1947 3,072,321 1963 5,317j827 1946 2,5@5,181 1962 5,041;897 1945 2,317,679 1944 2,227,974 SOURCE:, U.S. Army Corps of Engineers Waterborne Commerce of the United States, annual. transportation basically reentorced the conclusions of the principal study. He also added that rail deregulation, the small and aging fleet of shallow draft grain vessels (6 Candian ships) that use the Saginaw,and potential user fees are very important contstraints for future marine terminal development on the Saginaw. He further advisea that a rectntly completed :survey of terminal opera tors indicated that*there is major -excess capacity in existing terminals. He did notel, though,- that the Surath-Luntz scrap metal facility in Carrollton may represent some of the best potential for expansion. Jon B. Mersman, Saginaw County Planning Director, generally supported the recent port study. . he did specifically comment tha t the long-proposed Shattuck-eitth/Sixth Briage.coula be built at Weiss St. to avoid a bascule span at Shattuck. he also specifically identified the Carrollton Concrete site as r-he single. most attractive marine terminal or industrial site remaining in Carrollton. County Economic Development Director Jerry Breen also felt that Carroilton was relatively attractive for some future' inoustrial' development. It should also be noted that the most attractive potential marine terminal site now available in Saginaw County is' the former Consumer Power Company coal dock located about 1 1/2 miles north of Carrollton in the City of Zilwaukee. This site already has'a high quality dock at the site. The potential for additional industrial development that may be or may not be water dependent is also, somewhat clouded tur Carrollton. k,or one thing, Carrollton Township is physically small and is already rather heavily 32 residential. This means that there is not much open land available for new industrial development. The community's comprehensive development plan further confines industrial development to the Saginaw River-Chessie Railroad-Carrollton Road corridor. The land west of Carrollton Road will be essentially limited to small industries including small wholesalers and suppliers, machine tool businesses or specialty products. There are no major vacant parcels appropriate for industrial development along the riverfront. Carrollton will be attractive for principally small industries and warehouses. The survey of existing marine terminal, industrial operations and vacant land owners also indicated no major impetus for development. None identified major short-term or long-term plans tnat require changes in the existing development pattern. in addition, long-term consequences of the recent local economic depression have left a large number of small and even large industrial structures and found in urban Saginaw. These include the wickes plant on Washington, General Motors Parts Plant on Sixth and Washington and Steering Gear Plant 1 on hamilton, a number of vacant but modern smaller structures in Buena Vista Township, Saginaw Township, Bridgeport Township and the City of Saginaw. It is probable that these available and functional facilities will be absorbed slowly by the market before new facilities will be sought. 33 Conclusions and Recommendations for Marine Industriai Development A summary of key comments from literature.review and agency coordination is included in the appendix. The information received warrants these conclusions: -It is generally unlikely that additional major demand for marine terminal will result in Carrollton Township in the near future. however, should it be generated, the Carrollton Concrete site is most appropriate. -Carrollton cannot expect to attract major new,industries because of land availability limits. Accordingly it will have to market smaller industrial-aistribution uses along the Carrollton Road corridor. -The largest "vacant" parcel at the Carrollton Bar is not appropriate for industrial or marine termin'al'development because of the island and the major wetlands at that site. Generally, then, the industrial-marine terminal development plans focus arouna rL-@aintenance and improvement ot existing use patterns and in-filling small businesses where.appropriate in the corridor. Dramatic changes are not warranted by either the market place or by the physical conditions of Carrollton Township's coastal corridor. D_ Imp act of Commercial-Inaustrial-marine ReCOMmendations The recommendations presented here do not call for any significant rapia changes in the area. The purpose. is primarily a maintenancei formalization and improvement.of existing conditions. As a consequence there is a Iso no major impact based on these recommendations. This is based in part on avoiding potential conflicts in, tormuiating the recommendations. For example, classic planning theory of the 1950's and 19bO's would suggest an industrial or marine terminal tor the Carrollton Bar/Seaway Drive area, but this was not done here because of the site's sensitivity. The rat her minor sociall economic -and environmental consequences of the commercial and 34 industrial recommendations are summarized below. These impacts are examined in the context of five resource areas identified in the Sta te of Michigan's co astal management plan: (1) recreat ion and culture (2) economic potential, (3) natural hazards, (4) sensitive to alteration, and (5) areas of intensive use'. The social impacts of the commercial and industrial development proposals can be described as minor, but positive. The proposals will result in some transportation impro vements and some possiblestorefront beautification. The growth and physical changes should help to stimulate community pride and self-respect. The possible greater selection of goods and services would also be an asset. Appropriate "Areas Fulfilling Recreational or'Cultural Needs" are also noted and planned for preservation. These include passive recreation sites as well as the old rail station and the -former band-saw factory, both of which are significant as historic sites. The economic impacts will move in two directions. In one direction there are potential community costs ror public improvements. In the other direct.-L'on there is the potential tor increased tax base associated with private investment and possible additional employment tor area residents 'Because the amount of prospective private investment is speculative, a cost-benef-i-t reiationstLp is not possible. There would not appear to be any significant, new "Areas of Natural Economic Potential" in the Carrollton coastal zone, but rather only minor additional areas appropriate for such cases. The enviroimental'impacts, as noted earlier, are minimized by ckesi@,n. The entire area is within,the 100 year tloociplain ana thus that "Area of Natural 3S Hazard to Development" could not be avoided. However, it is under the Federal Flood Insurance program so that relevant design standards are required. There is some temptation to extend potential industrial land uses all the way north to Ziiwaukee along Seaway Drive and.the river. However, there is a large valuable (from an ecological standpoint) cattail marsh on the property. Furthermore, it would require enorntous antounts of till and is not, theretore, a particularly viable area for such development. - The- wetlands and Carr ollton Bar also consti tute "Areas Sensitive to Alteration or Disturbance" under the state plan. Thus these areas are precluded from being adverse impacts and thus there is not negative impact from the commercial anct industrial plan., .The Township's recently actopea comprehensive plan does call for eventual assimilation of existing residential homes along Carrollton Road into either commercial or industrial use. This is done in the.interest at removing "Areas of Intensive or Contlicting Use". However, it is not a proactive plan and is rather intended for long-term removal of houses after the functional utility as residential pro perty ceases. An estimated twenty-five. homes fit in this category. Because it is in a legally adopted comprehensive plan and is the practical way to remove essentially contlicting land uses, those plans artt part at this coastal mariagement concept as well. The net result is thatthere is no signiiicant, and certainly no adverse, impacts front the co mmercial and inciustrial development plans ofterect above. 36 E. Desirable Public Access and Recreational Development The public participation phase ot this program supported the concept of public access and water-related recreation along the Saginaw River in Carrollton Township. The conditions of the coastal area and the optional use for some of the vacant parcels also demonstrated some very appropriate sites for such uses. Based on this previously documented information, desirable public access and recreation development is proposed.' First it might be noted what the. context is. for public access and recreation. Public access to the Saginaw River in Saginaw is usually not oriented toward the Saginaw Bay. It is for river recreational purposes including cruising, catch and reiease fishing and also a signa ._n.Lcant amount of water skiing. Public access along the upper reaches of the Saginaw River has limitea availability. only two major public access points are Used. One is the Wickes Park Ramp, which is near the southern terminus Ot thE_@ Sagin aw River at the confluence ot the Tittabawassee, Shiawassee and cass@ Rivers. This site is about five miles upriver from a Carrollton site on the east bank. This site is well developed with ample parking and amenities. its utilization Might be-.,; t be described as light to moderate. A ifiajor reason for limitea use m.*@.qh.t be a public perception that this particular location is in a relative'Ly high,crime area that has risks for leaving cars and trailers behind. The other. site is a new one located at Veterans Memorial Park just inside Bay County This site openea in 1983 but its utilization has already I)een significant with all 10 trailer pa rking spaces filled at times. This site 37 LIBERTY E KOCHVILLE 0 RD IVILLE RD U. cc cc 0 z z > TITTASAWAS TIrFABAWASSEE JBoat La Zilwaukee Cit3(j SCHUST RD z X MC CARTY RD MC CARTY RD Pot!ntial sitE! for the cc Pro:)osed.CarrDllton Ba -K and Seaway Dgive Laun@fil 0 FROST SHATTUCK SUMME FE' DT RD WEISS 'ATATE 4 fO@Ml z CONGRESS OEDDES RD COOPER "y '90c cc 0 IVA GnArl0l uo Ix Ix m SCHUMAKER z R U) AD DUTCH MICHIGAN AVE H 0 Riverfront cc arina 0 (private) z TRINKLEIN cc SWAN CREEK RD RD N SAGINAW W+E F AREA BOAT LAUNCH SITES IN SAGIRAW-AREA is about five miles north of a potential Carrollton site. It is a relatively attractive and functional facility. One" other public access site does exist very close to Carrollton. Zilwaukee's Riverfront Park has a single boat ramp into the'river on the west bank within a mile or mile and a half of a prospective Carrollton site. Normally, this would eliminate any nee6 for a Carrollton boat launch. However, there are sonke fundamental limitations for th@ site. First, it is on an annual lease with 30 day termination f rpm Consumers Power CORLpany. It probably is in no j6opardy, but. the potential does exist. Another limitation is that. the facility is only fair in quality -because of the rough ramp condition,, dock locati... and informal parking, Indications are that the City of Zilwaukee cannot afford the resources to upgrade -it substantially on its own, and the short-term lease eliminates grants. Based on the character of topography and available land, one of the best parcels for a boat ramp would probably be an approximately Iive acre parce 1 at the terminus of Shattuck Road at Carrollton Road. The site has a reasonably steady fall to the@ rimer where the bank is neither high nor steep to the river. There is amp le room to provide parking and amenities, However, the site is owned by the Saginaw County Road Commission and is a future approach abutment and pier -Location for the Shattuck Roaa Bridge to replace the Sixth Avenue bridge. The site would be rendered useless for a ramp because it would be slicea diagonally by the alignment. 38 A site that is only somewhat less favorable from a topographic standpoint because of a higher existing bank is some of the vacant property off Seaway Drive. There is ample room on the large parcel and launching would be into the west channel of the river, totally, away from the navigation channel and any main channel wakes. Recommendations for Public Access: -Within this context it is recommended that public access be provided off Seaway Drive into the west channel from the Carrollton Bar. Because of anticipated moderate usage, two ramps along a central dock would be sufficient, though room for future expansion may be appropriate. The context for recreational use of the riverfront is provided in part by a recreational analysis in the Township's comprehensive plan. That analysis found no major deficiencies in active recreation such as field sports and court sports, but it did identify a need for all passive recreation facilities including picnic areas, nature trails and scenic areas. There are no facilities for any of these uses in the entire township of 8,OO0 persons. The comprehensive planning process also included a mailed out planning survey to all residences of Carrollton Township. About 16% of those residents responded by returning the form.More than half (53%) wanted to set aside vacant land for the development of parks for fishing, and boating. Eleven percent wanted the vacant land set aside as an environmentally 39 A, A JL C-WOLLTON BAR AREA SITE: VARIOUS PERSPECTIVES ew 1@ Vi @hrough the West Channel of the Saginaw Rive between the Bar and Wetlands. r 2. Info nal Trail Along River Bank. m 3. View.)f Vegetation in the Cattail Marsh. 4. North End of the Carrollton Bar Looking South. -wcen the Cattail Marsh and the 5. Openfield Bet i %W4 Trees Along the Rivcrl)c-mk, 6. View )r Erosion of Bar on Shipping Channel Side. The Bar was Principally Built-Up Using Dredge Spoils Prior to the 1970's. V V, 11undim er 9 MINIMUM% SASSM. ANN31MM 446" A ? "I X@j '@e ?r -AMA 2XI am Photo showing the cattail marsh located on the site proposed for park development. This site is large enough to accomodate diverse recreational developments including: nature interpretation, fishing, hiking, boating, picnicking, organized field. ga@mes, and play- ar. ground. Bordering this site and located in the Saginaw River is the Carrollton -3 ffio This unique island could be accessed from the site and used for hiking, fishing, and picnickino. 1511141 Hier PA M tM sensitive area. By comparison 34% favored new river port facilities and 31% wanted commercial and industrial uses. In examining the options for use of undeveloped land, and recognizing the unavailable land at the end of Shattuck Road, the parcel that is most readily attractive and available for meeting the identified needs and desires of the community is the large wetlands, field and island off Seaway Drive including the Carrollton Bar. The site combines the environmentally sensitive wetlands and wooded island with the field and small wooded area for picnics. An excellent trail and boardwalk system could be developed and the suggested boat launch could be integrated into the site without adverse impact. A small vacant parcel south of the Sixth Avenue Bridge could be a small beautified entrance point to the Township. It has no significant recreation value except for potential benches overlooking the river. But it could be an attractive landscaped entrance to the Township. If the Carrollton Concrete parcels were abandoned and not used for possible alternative uses as industry, marine terminal, private marina or private recreation/amusement, they could have some potential recreation value. They would, though, lack much in trees, shore overlook or attractive surrondings on an immediate basis. Recommendations for Recreation Considering the needs and available sites, it is recommended that the Seaway Drive/Carrollton Bar site be acquired and be modestly developed into a passive recreation/nature center facility. 40 -Z A6. 7ND @Z 077-5, OVW" "CTF." -CAPROLLTON-SMTTUCK OPEN SPACE SITE This is the approximate 4 acre site located at,the intersection of.Carrollton and Shattuck Roads that has a good view and character along the river. The site has great potential for a@simple open space or scenic area for pi ic nics and casual boat mooring.6 The site is ultimately intended to be part of the approach to a proposed Shattuck Road bridge and thus is not suitable for a high investment permanent park site. A major limitation is the railroad track that precludes easy auto access. The site is already used for some informal recreation (picnics and fishing) by youngsters'in the Township. Because the bridge remains a long range project, it is suggested that it be more actively used and that the informal use be somewhat structured and controlled until the bridge is constructed. The small site at the Sixth Avenue' Bridge-co ula be' acquired and beautitiect as part of. the total waterfront development, but utilization would only be scenic. A riverfront walkway is recommended behind industrial parcels from Shattuck Road south to the Schaeter Chemicdl Company and thence to Carrollton Road. it is recommended that this be developed in cooperation with private property owners without actuaf acquisition of the property. The following map locates the proposed pu'b'lic recreation facilities. V 45 CARROLLTON TWP. EHEBEEM M ES EMS EMS M FF3 EJEJ 15 r [E EE EH EME Emd OEM L]EUM m E3SM 'TRUIUIL Ezl@ I =rT d -5riir I 11h AbCAPIV- wiuut 7Z f tQ 4 TFT. T --TN F+47 JL 4 in RECOMMENDED PUBLIC'ACCESS AND RECREATION SITES CARROLLTON TOWNSHIP j COASTAL DEVELOPMENT 1. Carrollton Bar/Seaway Drive Nature Area PLAN .2. Public Access to the Saginaw River 3. Shattuck/Carroll.ton Scenic Site 4. River's Ed ge Walkway Kpndinger Associates PAIRT IV: COASTAL AREA DESIGN- CONCEPTS PART IV: COASTAL AREA DESIUN CONCEPTS This part of the report outlines the design concepts that are consistent with the general development plan presented. The purpose of the design concepts is to provide a visual understanding of the program and provide a basic framework tor its actual implementation. The design concepts consist of preliminary sketches for the beautification of the Carrollton Road corridor and also site plans for two recommended recreation sites. A. Carrollton Road Beautification This analysis focuses on examining the public right-of-way and the visual images of private property along the roadway for all of Carrollton Road through the Township. Recommendations are then formulated to improve the Physical appearance of the the road right-ot-way. Since pedestrian traffic is minimal, the design emphasis will be from the perspective or the motorists using the road. The overall. purpose will be devel op the character of the roadway to retlect a pleasant, interesting and safe ariviny experience. The predominant character of the land uses along the road are commercial and industri-al. Although pockets of residential, recreatio na-, transportation and wetland uses exist, the perceived image is strongli commercial,and industrial. This interspers ion of land uses together with the proximity of structures to the roadway creates a sequence of spaces. These spaces are sometimes occupied by one type of land use, but more comr.only ny several. P, Thelobjective in the beautification is to "pull togethei." and unity the length ot the roadway to create a single visual image rath,.::r than a dive rse collection of unrelated visual images. 42 On several following sheets are descriptive commentaries and photographs of various cross-sections' and feathures of Carrollton Road. These describe certain conditions, limitations, and opportunities available for visual enhancement along the corridor. major considerations in developing design concepts for improvement are established with these criteria: -Improve roadway as required for safe, comfortable driving. This incluaes spjot repairs on bumps and potholes as well as adjustments to track crossings and maintenance of the shoulder. -Identity existing vegetation to be mal ._ntainea and incorporated into the design scheme. Useful mature trees as well as ornamental screening shrubs such as staghorn sumac,.red dogwood and tiger lily perennial grounacover can be found in various locations along theroadway. Not only are these .plant materials valuable as part of the @roposed lanct-' scape, but they also are indicators of plant species which are tolerant of the existing conditions. -Epcourage private business participation. Beautification neea not be restricted to tree and shrub plantings. A number of commercial operations have visually interesting physical plants and technological structures. Their appearance and be positive and desirable by bright painting and/or cleanup. objectionable views can be screened or disguisect with architectural treatments. B siness signage can be repaired, relocatea and better identified with symbolic or logo signs in the business area. Considerable visual improvement can be achieved by simply maintaining lawns and fences, cutting weeas, picking up debris and storage of equipment and materials in an orderly fashion or out of sight. The number ot,aiternati .-ves available.to treat the visual image of the r@oacl greatly increases it it is possible to have related improvements on private properybeyona the right-of-way. In this regard it is essential to have 66mmunication ana support with the businesses along the corridor. -Examine all of the public road signage to insure is requi red, is in good condition and properly located. -Utility poles anct power lines are an overwhelming visual distraction in the right-ot-way. The profusion of overheaa wires becomes a major eye- sore. On a long term basis, as the life span of existing overhead systems is realized,, it i.Ls recommended that the utility companies be approached on evaluating, (1) thepossibility,ot locating future gervices unaerground, or (2) near-term removal ot.poles or lines not now critical to service,@or (3) relocation of poles and lines to more favorable locations, gene.r'ally f-urther from the road. 43 @7- Visual improvement schemes for roadways need not be complicated and expensive. Good'imsekeeping practices such as grass cutting, tree and shrub pruning and litter pickup do much to enhance the landscape as iqell as to project a new clean inage, Fi4 OR 4Z.150'1 @=,Mz Fences, where present along the roadway, present -opportunities for alternative planting solutions.' if screening is desirable in these locations, vines can be planted to grow and cover the fence. Intermediate shrubs can also be used, or a combination of trees, 04".% 41 shrubs and vines can be devised. Chain link fencing can also,be treated architecturally by inserting'wood slats through the mesh giving the appearance of a wooden fence. Painting chain link fencing flat black is another means of visually softening the materiali 3 7, . . . . . . . . . . Incorporate the existing plant growth into the proposed design scheme whenever possible.', Plants of value should be identified, shaped and trimmed. Valuable trees, shrubs (Staghorn sumac, red dogwood) and ground covers (tiger lily)-exist along Carrollton Road. % 44@ This photo shows how tree plantings define the roadway, screen and direct views'G@nd soften, the edges of the road. Trees-,,@also-absorb And buffer sounds and reduce temperatures making for'4 cooler quieter environment. _7 A AI ggq' " . @7'19 This suggested site for a township park is the only location alon,, Carrollton Road where you are able to see the River from the road.. Trees could be elevated, shrubs,trimmed and the riverbank,graded down to improve the views. Low key recreational-activities are encouraged such as unorganized field games, picnicking and fishing. Limited parallel parking could be constrticted along the roadway. 4 :J, 77, _6B NA An example of loss of roadway definition along one edge due to the proximity and overlap of commercial activities. A row of trees would correct this sit- uation by redefining the road edge. In narrow right- of-ways or planting locations an upright tree would be most suitable. 77 1[ 41 L 7 Where developments are gen6rously set back and land is available,.earth berms,may be constru8tedto screen parking, stored equipment and materials and, '.commercial structures. J 25 4; 7@ G@ouping s of retail establishments can promotea separate and uniqueAdentity through special landscape treatments. Since Vie street spaces along the road and-adjacent to these b-isinesses are pedestrian oriented it makes some sense to provide those amenitieswhich dontribute to a pleasant pedestrian environment. Furnishings to be considered for this exterior decorating scheme include: Crnamental paving (brick or brick substitutes, concrete exposed aggregate, etc.) benches, litter receptacles, TMI lighting, pots or plinters with flowers, trees and tree arates. These amenities could be further comp2imented through. architectural improvements to building faces and signage. , TR 4z WOR M_:'It4 @7z Evaluate sig.nage needs.'I@bssages"along the roadway should be clearly stated and:@-,ppropriately located, To many mess'ages-are confusing. Confusing or repetitious messages are often ignored. The township entrances along Carrollton Road could be identified-using nicely.des'igned descriptive s ipma ae z -Identify those portions of the roadway to be landscaped. Identi�y-the types ot landscaping, trees (shade, screening or ornamental), shrubs-, and gr.oundcovers applicable to the various.c 'onditions. Plant material selections consider and satisfy those specific conditions existing along Carrollton Road and include Low nutrient soils on commercial sites. Heat from both hard surface reflectance and from commercial-. activity. Air quality limitations for some species. in select locations. Textural'qualities of various.plants to absorb and buffer poises. Based on these criteria, a series of cross-secti6ns of Carrollton Road have been examined and preliminary designs prepared. In addition, commentary has been provictea'for various conditions along the,corridor. this.is.:done by the following series of annotatea corridor plan maps, each ot which-is followed by a cross-section icientified on the plan map. Following these maps ana cross-sections:. is also a-list ot plant materials that are,appropriate for the landscaping treatments recommended.* The name. ot the material, normal planting sizes. and root deliv ery are shown as well ,as remarks,,which normally indicate the distance that should be maintained between the.specie8. Current-average commercial costs of the vegetation are also.shown on the pl ant materials list. 44 awsrrD46 WA lt-40- Ar4V PLANTMI MXA/APL@W_ Or MCa7INJ& CONDyr4*@ '@SCL.LCP_ CoHAIS (_IXJ4@ Fm_.SQNCw' -:7 AKV A, NoSAXON ?W-O.W- - THM Of5lJgh@l_ OFN@714M.__ 7,7 Evil PL N MAP HOW NG CROSS-SECTION OF CARROLLTON ROAD NEAR STOKER CAR-fkal"Tom PLO- Ft.CXW- 6,o1v%lv\mqQLCAA4- VfxoDLr-lTlo Av -e WE D f-Aj@fr----HICbHL;. Ac -a ANL P (:;,r- wz@@o (CgJT CHAIN L-ItAW- F-E-::@a PICK LIP WM-) ."&'aAM4A-AA&IL am Eel m9ago- wwwwwww 'wWwWwwwwworily cr. CARROLLT014 RD. I I MKI I 1011310 , 7-i cKa K .00 rs 77 , VA ,i4- N" -R, it, 14 N, X LOCATZ*40 WHOrLM AA016W cl, MLMZ71t-@ AND AN =4A. W-L.4 or A,1% V.&mr?j 10P ALr=O 4 PLAN MAP SHOWING w PEI I MA k CE CROSS-SECTION OF CARROLLTON ROAD AT MICHIGAN SUGAR PLANT aMWr 'VrOrkAroft YAR-D K-CLW. "r \00, r 3 "all T JACKSON Lac- (L L-L MADISON .. ........... Wf[@@ 13 _I H. CARFIOLLTON. ACL AN0M 09W "Or_.^ Ll a a OF vv =.r- 7!1 f fz@ A4 XTJI;FA ?w ozr V^oNo&w- _171-i Mv cvA%'%+ 95-m are, It _._ - I - FM FM I 1-ji-q- imul LLLOI PLAN MAP SHOWING CROSS-SECTION OF CARROLLTON ROAD THROUGH BUSINESS AREA C-1 JL oo cl I I t I JACKSON a: MADISM w (3 013,0 Fg(3 MOCARROLLTON [email protected] . .1 ou 7@_ lie, @Y. f 3t ;-T TT. Lift X. . @AL I E L m PLAN VIEW SHOWING LOCATION OF CROSS-SECTION AT SURATH-LUNTZ MARINE TERMINAUSCRAP YARD lop, RAI SHE 0 0 r- > 17- t V) CO m = > 0 .x ZE ::E > < Ovi 1k 14 PLCL PLOLWO PIANT- MATERIALS LIST DECTDUOUS CANOPY TREESi PLANT NAME/SIZE/ROGT REMARKS Acer platanoides Norway Maple 3 31219# BM Plant 40' on center Acer Saccharinum Silver Maple 3 31" B&B Plant 40-' on center Fraxinus pennsylvanica lanceolata 'Marshall Seedless' Marshall Seedless Ash 3 B&B Plant 40-' on,center Gleditsia tricanthos: 'Skyline' Skyline Honeylocust 3 3-21" B&B Plant 40' 6n-4benter Platanus acerifolia' Plant 40' on''center London Plane Tree; 3 3-21" '3-&3 Spring plant only *Average cost per tree $300.00 PLANT NAYE/SIZE/RCOT IREMARK3 'Amelanchier c*anadensis Ame-lanchier 6 8, 30 Plant 20' on center Crataegus phaenopyrum 7,,;ashington Fawthorn 2 212#1 3&3 Plant 20' on center- Crataegus crus-galli Cockspur Hawthorn 4 - 6, B&B Plant 20' on center Malus 'Snowdrift' Snowdrift Crabapple 2 - 21" 3&13 Plant 20' on center Prunus serrulata 'Kwanzan' Kwanzan Criental Cherry 2 - 2-y"' B&B Plant 20' on center .*Average cost per tree $210.00 DECIDUOUS SCREENING TREESs PIANT NAME/SIZE/R= REMARKS Acer platanoides 'Columnare' Columnar Norway 'Maple 21 - 3" B&B Plant 201 on center Carpinus betulus 'Columnaris' Columnar European Hornbean 6 - 8' B&B Plant 15' on center Poulus nigra "Italica' Lombardy Poplar 6 - s, B&B Plant 10" 6rr center *Average cost per tree $125-00 EVERGREEN SCREENING TREESt PLANT NANE/S IZE/ROOT REMARKS Picea abies. Plant 15' on center Norway Spruce 6 8, B&B Spring plant only Picea omorika Pla'nt 15' on center Serbian Spruce 6 8, B&3 Spring plant only Picea pungens Plant 15' on-center Colorado Spruce 6 3&13 Spring plant only Pinus nigra Plant 15@ on center Austrian Pin; 6 8, B&B Spring plant only p Pinus resinosa Plant 15' on center Red Pine 6 8, -=&3 Spring plant only *Average cost per tree $150-00 DECIDUOUS-SHRUESt 1. PLANT XAME/SIZE/ROCr REMARKS Cornus racemosa Grey Dogwood 18 - 2411 B&B Plant 6 - 8' on center Cornus stolonifera. Redosier Dogwood 18 - 24" B&B Plant 6 - 81 on cente.r IkorW-mus alatus Ekirningbush 18 - 24" B&B Plant 6 8" 'on center Forsythia suspensa lant 6 81 on center Forsythia 18 24" B&B P Lonicera tartarica Tartarian Honeysuckle 18 24" B&B Plant 6 81 on center Rhus typhina la nt 6 81 on center Staghorn Sumac 18 24" B&B P Syringa Vulgaris 0 Common lilac 18 24" B&B Plant 6 8' on center *Average cost per shrub $30-00 GRCUNDCOVERS: PLANT NAME/SIZE/ROOT REMARKS Coronilla Varia Crown Vetch Famerocanis Daylily Lonicera japonica 'halliana Falls Honeysuckle Parthenocissus quinquefolia Ifirginia. creeper Rosa wichuriana Memorial Rose *Average cost per square foot U.25 B. Riverfront Recreation Sites The general development plan recommended two riverfront recreation sites. The first is the Carrollton Bar area where a large passive recreation facility is proposed for organized activities including picn%c areas, nature trails, boat launch, nature study, shore-fishing and even open fields for pick-up sports at picnics. The second is improvement of the road commission property at Carrollton and Shattuck Roads as an interim 'scenic.. passive enjoyment site for residents and boaters. It is recognized that this latter facility would be interim until such time as the proposed Shattuck-Fifth/Sixth Bridge were constructed. Proposed 'conceptual site plans for each of these proposed recreation sites are shown on the next two conceptual site plan maps. These conceptual plan naps need not be considered as final designs but merely as one approach to integrating the proposed uses in a compatible and pleasant relationship. Any final design for such facilities would have to include a more detailed understanding of total site conditions for actual placement and character of the improvements. cost estimates for these recreation sites are included in the following part of this report dealing with implementation techniques. That part also gives a general priority approach for implementation sequences in developing the facilities. It should be noted that most of the equipment suggested for the Shattuck Road area site could readily be relocated@to some other facility once the scenic site was displaced by bridge plans. 45 Mqw Lit w cn Go .-CARROLLTON RM T 7@ one" :-V Fvje@WoLrr J, VMerMrAMOK, 7-FVLVA AND _a5LJMVA7r=_l' TFLMMer AND -rAfiM_"j COP%"" AND MM@r_0_ /V%At4TW4AKa* AND ;Nr9oFXANAL_ POM-D CPAV%A A0TNMMlP_v. 71-4A-- _rw EPPLAODwrw AN= _TlFtw_=w_ 7lxvA/ATlw&.-L rU@ AND MAtt-frAft.1-AW K@ - SITE PLAN CARROLLTON/SHATTUCK ROADS SCENIC VIEW PARCEL %Ti ......... 7 Ij TYLER 'Al SHERMAN 10 *1"1qtl GRANT . . ...... 7V 60 W-* 't ir It Ilk Ar V Plk, -V list '1 151, t;4 IMPLEM PART V: ENTATION TECHNIQUES PART V: I14PLEMENTATION TECH.NI QUES. As was observed by a participant in the communj ,Lty participation process, it is much easier to loxmulate plans than it is to implement them, This is true principally because the financial costs are normally high for plans that. will significantly raise the quality of life in a community and also because its is a difficult managerial task in terms of managing complex public, quasi-public and private roles and resp onsibilities in the process. Unfortunately, that is as true for this plan as it is for any other. The purpose of this part of the plan is to describe the procedures and arrangements that might be use to achieve implementation, including the legal, financial and managerial processes. This aecription is adcresseC.in terms of-community involvement, capital investment, incentives and policies as well as ordinances. A. Community Commitment and Involvement Prior to considering any form of implementing a plan, it is very important for the community to understand the plan, recognize and agree with its values, and be commitec to the plan to the extent of actively or passively supporting allocations of resources to it. It is in recognition of this that the process of developing the plan included extensive opportunities for reviewing and influencing the development of the plan. The work products of this plan are also intended to help toster additional understanding commitment to this plan. Once the plan is understood and accepted, it is easier -perhaps even requisite -for policy orticials to work continuously for its aeve lopment. And it is also easier to mobilize other community resources to help with 46 implementing the plan. There are, in fact, a number of potential community resources available to help with implementing Some part of this plan. A summary of some such prospective community resources and their role is summarizea on the following chart. The community resources identified, though, have not been contacted about this pro3ect and certainly have no commitment to it at this time. These resources are not governmental agencies or processes, but rather the public interest And civic groups that can help with implementation outside of the ublic arena and financing. p SELECTED LIST OF POTENTIAL COMMUNITY RESOURCES TO ASSIST IN IMPLEMENTATION OF RIVERFRONT PLANS Organization Potential Role Boy Scouts of America Potential light labor donated for making trails, routine maintenance. Ladies Farm Garden Club Donate small araounts ot money for beautirication Carrollton Lions Club Manpower from club members and/or financing of specific improvements. Northwest Kiwanis Club Same as above. Second National Bank Trusts major or minor philantrophic grants -Boutell Memorial Fund serving educational or social purpose -C.K.Eady Family Memorial Fund -Michael Jeffers Memorial Fund -Francis Gall mills Fund Wickes Foundations major philantrophic grants serving educational or social purposes. This has been used for a number of major park improvements in the City and in Saginaw Township major Township-based corporations Possible voluntary beautification of such as Pillsbury, Michigan Sugar, their own properties consistent with Luntz, Carrollton Concrete, the these concepts. asphalt companies and others. 47 B. Capital Investment Sources The community resources identified previously are extremely important in mobilizing attitudes, providing manpower and in setting up seed money. Normally, though, they cannot-provicLe enough resources -to do the job on their own. Basically there is a need tor major money sources to impleme.nt the projects. Some generalized cost estimates have been prepared for both of the proposed recreation sites. These estimates assume total implementation of the plan by contractors. it is possible to reduce these costs by having simpler plans or by using some volunteer labor and/or donated materials. No costs are shown for land acquisition, which is typically a major investment. This is because: -The Carrollton Bar area has been proposed for 100% funding for acquisition by the Michigan Land Trust Fund under a grant. -The Shattuck Road site is currently owned by the Saginaw County Board of Road Commissioners. it is planned for eventual use for the new Shattuck Bridge. The intent is simply to suygest an interim use. -The riverfront walkway from the south Township liatits to Shattuck Road as describe in the general development plan is not proposed as tee simple acquisition. Rather Act 116 Open Space Easement, low-cost leased easements, donation by property owners or similar method. obviously any such arrangement must provide the property owners with measurable advantage for becoming involved in such an arrangement. -The Carrollton Road beautification is suggested for just the public road right-of-way or as individual projects by the propery owners. A major concern is to leverage as much funding tor these developments as possible to minimize.the investment required by the Township of Carrollton. This in no way indicates a lack of interest by the Township, which has consistently encouraged such improvements. however the local financial base for the Township is strained when it faces replacenent of aging infrastructure, a modest industrial tax base, and increasing demands for police and fire protection. 48 Carrollton Area Coastal Planning Project CARROLLTON ROAD BEAUTIFICATION COST ESTIMATES Grading (Various Locations) $ 50,O00.00 Trees and Vegetative Cover (Entire Corridor) 150,000.0O Streetscape Improvements (Business Area Only) 60,000.00 Signs and miscellaneous Amenities 5,OO0.00 TOTAL $265,000.00 TOTAL ALL COST ESTIMATES Carrollton Bar Area Riverfront Park Site $385,000 Shattuck Road - Carrollton Road Scenic Site 25,000 Riverfront Walkway 40,000 Carrollton Road beautification 265,000 TOTAL $715,000 Carrollton Area Coastal Planning Project PROPOSED RECREATION SITES COST ESTIMATES SITE #1: CARROLLTON BAR AREA RIVERFRONT PARK SITE First Second Third Priority Priority Priority 1. Roadway and parking lot $ 40,000 45,000 ------ development 2. Restrooms 75,000 ------ ------ 3. Shelter 25,000 ------ ------ 4. Grading ------ 25,000 ------ 5. Boat launch and skid pier ------ 40,000 ------ 6. Three docks ------ 6,000 ------ 7. Raft transportation system ------ ------ 10,000 8. Trail system on Carrollton Bar ------ ------ 6,000 9. Amenities: Benches, picnic 4,000 2,000 2,000 tables, grills 10. Develment of the nature trail 25,000 25,000 25,000 system, ponds signage et. 11. Security lighting ------ 10,000 ------ 12. Playground 10,000 10,000 SUB-TOTAL $169,000 $l63,000 $53,000 TOTAL $385,000 Carrollton Area Coastal Planning Project PROPOSED RECREATION SITES COST ESTIMATES SITE #2: SHATTUCK ROAD/CARROLLTON ROAD RIVERFRONT SCENIC SITE First Second Third Priority Priority Priority 1. Develop parallel parking ------ $ 5,000 ------ along road (grade and gravel) 2. Install 6' chainlink fence ------ 2,000 ------ 3. Site grading ------ 4,500 ------ 4. Trim Trees, remove undesirable ------ 3,500 ------ trees and shrubs. 5. Plant Grass ------ 2,500 ------ 6. Install amenities including, ------ 5,000 ------ benches picnic tables, grills, signs and riverfront dock (no launch, though). 7. Security lighting. ------ 2,500 ------ SUB-TOTAL ------ $25,000 ------ SITE #3: RIVERFRONT WALKWAY (South Limits to Shattuck Road) 1. Install chainlink fence ------ ------ $ 10,000 2. Grading ------ ------ 3,000 3. Trail Development ------ ------ 2,000 4. Gates, Signs & Amenities ------ ------ 5,000 5. Landscaping & Miscellaneous ------ ------ 2,000 SUB-TOTAL ------ ------ $ 40,000 TOTAL SITES 2 AND 3 $ 65,000 GRAND TOTAL SITES 1,2 AND 3 $450,000 Accordingly, grants, trust funds- and community involvement must be programmed to the maximum extent possible. This is done on several prospective capital improvement sumataries for the Carrollton Bar Area, Shattuck/Carrollton Scenic Site and the Corridor Beautification. These should not be assumed to represent the only program that can succeed, but rather to demonstrate the mix of efforts that can be usea to iaLplement the project. The final mix would, of course, depend on. the availablility of tunas from these various sources. The Township ot Carrollton is assumed to have up to $1U,000 annually for a successful program. C Public Incentives one of the best approaches to implementation is to use incentives or leverage public investment. The sites will simply require the mix of many funds to be properly constructed. But with the Carrollton Road corridor beautification a number or incentives are possible to reduce public investment. These inciude: -Whenever a rivertrant or Carrollton Road frontage property owner seeks local government assistance in terms or tax reliet or financing, it should be a stipulation at the incentive that a landscaping, beautification and amenities plan consistent with this study concept be be part of the approval requirentents. The most common incentives are: Michigan Economic Development Corporations Act (338 of 1974) which provides financing through tax exempt bonds. Michigan Plant Rehabilitation and industrial Development Districts Act (198 of 1974), which allows for frozen assessments for rehabilitated plants or reduced (up to 50%) taxes on new plants. Commercial Redevelopment Districts Act (255 of 1978) which provides frozen assesments or reducea taxes in commercial areas. Require conformance to beautification in order to take advantage of potential benetit trom state or federal grants. Carrollton is elgible tor a number of state and feaeral grants that could benefit property owners. The Township could offer to seek such grants to benetit property owners if they agreed to also inplement the beautification program. 49 CAPITAL IMPROVEMENTS PROGRAMMING Carrollton Coastal Development Plan CARROLLTON ROAD CORRIDOR BEAUTIFICATION First Priority Second Priority Thira Priority Improvements Improvements Improvements First priority area would Area from south Township Business area from be Carrollton Road from limits to Sugar Street Sugar St. and from Hickory St. north to because next most cost- Saginaw River to Township Limits because: etfective area to be westernmost railroaa completea. tracks. -Partial imp;ementation started by Luntz Corp. -Significant resdiences in area., -Easiest, most cost- eftective to complete. Cost estimate: Cost estimate: Cost estimate: $1U0,000 $110,000 $ 55,0U0 Financing sources are variable. Generally the options include governmental expenditures by the Township,, special assessment districts, public-private joint financing, tederal or state grants or combinations or these. For areas where businesses are changing operations, expanding, building new or otherwise needing bermits, then implementation can be accomplished by zoning ordinance site plan review or by stipulations to receive Act 338 financing or ror creation of an industrial district. CAPITAL IMPROVEMENTS PROGRAMMING Carrollton Coastal Development Plan CARROLLTON ROAD CORRIDOR BEAUTIFICATION First Priority Second Priority Third Priority Improvements Improvements Improvements (1985 & 1986) (1987 & 1988) (1989 & 1990) Land Acquisition by the Trailer/Vehicle Parking, Ratt Transportation Michigan Land Trust Fund. Boat Launch with Skid System, Playground, and Pier and Grading: Development of Trail Roadway & Parking Lot $110,000 System, Ponds & Signage Development, Restrooms & tracks: $45,000. Shelter: $140,000. - $55,000 Waterways DNR - $20,000 Township Funds - $22,500 LAWCON Grant - $70,000 LAWCON Grant - $15,000 Community - $12,500 Township Fund - $40,000 Philantrophic Fund Raising - $10,000 Community - $15,000 Community Fund - $20,000 Philantrophic - $15,000 Township Funds Trail System on the Three Boat Docks and Carrollton bar and Amenities - benches, Amenities: $8,000. Amenities: $8,000. tables, grills, etc. $ 4,000 - $8,000 Service Clubs - $8,000 Service Clubs $4,000 Service Clubs Development of Trails, Ponds & Signs: $25,000 Development of Trails, Ponds & Signs: $25,000 - $25,000 Philantrophic $15,000 Donated Labor $ 5,000 Township Funds Security Lighting and $ 5,000 Service Clubs Playground: $25,000. $15,000 Donated Labor and materials $ 5,000 Corporate Donations This assumes a $10,000 Annual Appropriation by Township; Availability of Existing Federal and State Funding Programs; Interest and Resources from the Philantrophic Trusts, Service Clubs, Community Groups and Area Businesses. CAPITAL IMPROVEMENTS PROGRAMMING Carrollton Coastal Development Pldn SHATTUCK/CARROLLTON ROADS RIVERFRONT SCENIC SITE First Priority second Priority Third Priority Improvements Improvements Improvements (1984) Develop Gravel Parking Area Parallel to Carrollton Road and Grace Site: No Further Activities No Further Activities 91500. Anticipated Anticipated - $9,500 Donate Labor and Materials frout corridor Business Trim Existing Trees, Remove Undesireable Vegetation, Plant Grass: $6,000. - $6,000 Man Hours, Some Materials Frora Service Clubs Install 6' Chainlink Fence, Security Lighting, & Amenities: $9,400*. $ 5,000 Township Funds $ 4,500 Township Funds *These capital assets to be designed for maximum ability to relocate to the Carrollton Bar Area site if and when the Shattuck Road Bridge were to be built on this site. Zoning decision-making and management could be used to trade possible variances for appropriate beautification or to trade concessions during site plan review of new or expanded projects. Site plan review can also be used on its own to require conformance. it may be possible to acquire easements on some riverfront propery using Act 116 Open Space Preservation provisions to grant tax relief in exchange tor public use. There is not a good precedent fur this, but it would appear to be consistent with the act. Individual and intormal agreements between the Township and the property owners could also be based on particuiar circumstances. For example, a major property owner could agree to make certain significant private beautification ettorts providing the Township makes certain improvements in the pubi'Lc right-of-way. These incentives can be very eftectIve it properly used in a positive and cooperative framework. Strong corporations tind that an attractive physical environment is conducive to the total image and substance of success and the total impact at individual improvements makes the community correspondingly more attractive. D. Ordinance Changes Another way for Carrollton Township to approach implementation is to examine what changes may Le considered in its ordinances to enhance implementation. Because of the legal author2.ties available to Townships,.-the principal vehicle for control is the Township's Zoning Urainance. Fortunately, the Township has just completed revising its zoning ordinance in a manner that does benetit implementation. The key revisions were; -Flood damage protection requirements that are designed to limit and set standards for developments in the floodway or flooaway fringe of the Township. This is important because the entire coastal area is in the floodway fringe and because the Township participates in the federal flood insurance program. 50 -A new zoning district was developea for "Marine Development" of the coastal area. This district is specifically designed to encourage marine terminal uses and public or private recreation developments in the zone. -Site plan review procedures are included and now are available to insure that landscaping and beautification of properties can now be required for new or expanding developments It is expected that these new ordinance changes will provide the best 1(=gal incentives and controls tor sound development in the coastal area. They should, however, be monitored in the *future to insure that they meet their intent and the area's needs. Xl@, L LITERATURE REVIEW Summary of Key Conclusions SAGINAW RIVER PORT DEVELOPMENT STUDY PHASE I REPORT June 1980 Transportation and Economic Research Associates, Inc. Arlington, Virginia and Johnson, Johnson & Roy/Inc. Ann Arbor, Michigan ....Coastal Zone Management Act of 1974 ... stated purpose is to preserve, protect, develop, and where possible, to restore or enhance the resources of the mation's coastal zone.$" "The purpose of this study was to determine the long-term need for commercial, industrial, and recreational use of the Saginaw (River), in order to identify development opportunities and design an integrated development plan. our intent was to provide a pl an with an appropriate balance of commercial and recreational uses, consistent with good coastal zone management practices." I SUMMARY AND CONCLUSIONS Below are only those aspects of the study that have some significant A-1 relevance for the Carrollton Coastal Management Study. "This study's findings and recommendations from the Port Project chapter are: ."(11) This study has identified significant benefits from providing deeper channels for grain and stone shipments. The costs of providing a deeper channel to Saginaw may produce a low-priority benefit/Cost ratio, ancC at best, this improvement could require many years to accomplish. New marine terminal facilities should be located. at Bay City." "The traff ic forecasts indicate that tonnage couid approximately couble between 198U and the year 2000, to about 6,000,OUO. That is predicated on successful promotioal efforts to improve channel depths and provide additional grain, fertilizer, and pellet handling facilities. Between 2000 and 2020, the forecasts indicate that port tonnage may more than double again, to over 1 6 miilion tons. Largely it is predicated on the return of utility coal shipments via vessels. "(1) most opportunities for port traffic growth are in agricultural commodities - grain, pellets,ltertilizers. "(2) Construction materials traffic stone and cerLient/cement clinkers - will grow only mocestiy. "(b) The three agricultural commodity provements will A-2 require facility additions - the most significant of which will .@e for grain, preferably in the Bay City area. 11(8) more intensive use of the watertront-is possible at almost all locations on the river. To some extent, the availability or Seaway depths at Bay City would encourage this because of the value of the property. Non water-depenaent inaustry will find more economical sites elsewhere. II(q) The study did not identity any significant need for nivertront sites for water-aepent industry, based on the resources of the area. multi-user marine terminals and recreation related facilities appear to be the highest and best use or most of the waterfront. "(11) The study aid identity the potential general cargo overseas traffic of the Saginaw - and identified the service and rate disabilities that must be overcome to revive this tormerly important port traffic. With the caveat, that this may burden the agency with 2, hopeless cause, the study recommends promotional efforts by a port organization. "The study's findings and recommendation from the Recreation Demand Analysis are: "(13) :[n the mia-river zone, there is a near-term need for a boat launch oriented to fishing activities. A long term need exists A - 3) to continue expansion of the linear parks on the east bank for fishing, hiking and senic recreation activities. "(14) The study recommends pursuing the opportunity to develop a bo at launch within Veterans Memorial Park. (Note: Since constructed) "(15) The study recommends development of fishing moces, designatea pathways and scenic overlooks within the east bank linear park, and extension of the designated pathway through the industrial zone of Northern Saginaw - not necessarily always along the waterfront. "(16) In the Saginaw area, there is a near-term need for a boat launch in the north Saginaw area, and a need for transent docking facilities near downtown. 11(17) The study recommends acquisition of vacant properties on the west riverbank at the 1-675 interchange for a boat launch with adequate parkinQ and vehicle access, and inclusion of a. transient mooring facility in Saginaw's plans for its urban waterfront park._ "(18) The study recommends that the communities of Zilwaukee and Carrollton acquire and develop water oriented parks on available vacant land near their residential and commercial districts. A A The following recommendations have more general application. (2) Building plans along the river should be reviewed to prevent screening-otr of the river whenever possible. "(3) Where there is competition between recreational and commercial uses for the watertront, an acceptable solution is to limit the recreation facility to a passive viewpoint. Generally the big commercial ships are an attraction when working cargo, and viewpoints are needed. A mixture of small craft and large vessels is to be avoided. ##(4) Where use of the riverfront is minimal, a linear park is appropriated. 11(6 Because of canalization of the Saginaw, many of the indentations that would have been desireable for moving development have disappeared. Because of the censtriction of: the channel, marina developments should be inland, into basins, and not out into the water. Building into the water is cheaper than digging into the land, and the permits are easier to obtain. The marina builders may not appreciate this recommendation, but we hope it makes the permits easier to obtain." Several useful charts and plan maps from this study are attached. A-5 LITERATURE REVIEW Summary of Key Conclusions SAGINAW RIVER PORT DEVELOPMENT STUDY September 1980 Transportation and Economic Research Associates, Inc. Arlington, Virginia and Johnson, Johnson & Roy, Inc. Ann Arbor, Michigan This follow-up implemantation plan summarizes the Phase I Report as noting "...signiticant new investment in marine terminal facilities if needed, should be made along the lower reach of the river, Bay City/Grand Trunk. Western Bridge to Bangor/Essexville, because or the transportation economics from deeper water and better prosFects for continued channel maintenance and improvement there." It also said "A formal port organization is needed to provide project aavocacy.and initiative, and liaison between the Federal and local interests." "The Port Development Programs addressed in this study are the Port Project, Spoil Disposal and Port Promotion." The port pro3ect consists ot an export grain elevator and multi-purpose bulk terminal in the bay City area. No pro3ect is suggested tor Saginaw or Carrollton. A spoils area was suggested for an area in Zilwaukee Township, well north of Carrollton. Promotion would be the responsibility of a new port commission consisting of Saginaw and Bay Counties. Thus, this Phase II report-aoes not significantly address any issues that directly impact the Carrollton program. A-6 Literature Review and Key Comments LONG-RANGE TRANSPORTATION PLAN September 1962 Saginaw metropolitan Area Transportation Study "The Saginaw River Port Study recommends that the majority of Saginaw County's vacant waterfront be used for recreational purposes. Because most available land is in parcels too small for jnQU5trjaj development, linear parks and boat launches would make an appropriate use of the land. The Consumers Power Marine Terminal located north of the 1-75 Bridge should be maintained for water related industry. Existing port facilities should be retained and upgraded and their links to overland transportation improved. "The eastern riverbank's most important overland transportation connection is M-13. This four lane state highway provides access to the riverbank, the business districts of Bay Ci ty and Saginaw, and to 1-75. The western riverbank is considerably more isolated. In Ziiwaukee Township, access is provided by Melbourne Road, a two lane gravel road. County primary roads and city streets provide access for the remainder of the riverbank under discussion. Access to 1-75 from the west side is available in the City of Zilwaukee. "One of the most pressing questions facing the Port of Saginaw is that of dredging. The costs and benefits of dredging to Sea-way depth and the problem of spoil disposal are complex issues'involving a number of governmental units." This study also summarized some of the key statistics and conclusions of the previously referenced Phase I state report. A-7 OTHER LITERATURE REVIEW BENEFITS OF EXTENSION OF ThE NAVIGATION SEASON TO.TWELVE MONTHS FOR ThE PORT OF BAY COUNTY FOR ThE 1976-80 PERIOD, May 1975, Saginaw Valley State College Department of Economics This publication deals with the "Port of Bay County" (actually the entire Saginaw River port) in terms of economic advantages. The report utilizes a number of assumptions about loss or gain of port activity due to a shorter season, but does not address key issues such as keeping the entire Saginaw River open to Saginaw as opposed to just into Bay City. It also tends to slight the "captive" character of agricultural and aggregate products. These respond to growing locations and local market demand more than to quality or duration of port season. The study also does not effectively compare water transport with the alternatives of rail and truck, which might become more cost-erfictive irrespective of port operations. The study does conclude that there is considerable advantage in a possible year-round port and that the local areas should continue to examine its inputs and promote its realization. 2. MIChIGAN'S COMMERCE DOMESTIC AND INTERNATIONAL, 1966, Michigan Department of Commerce Although this was an interesting and fairly-well documented study, its useful is now questionable because of the great changes in the shipping environment since 19b6. It is not specifically useful for this Carrollton Township Study because it deals with Michigan and the Great Lakes as an aggregate rather than specific ports. A-8 Literature Review Potential Marina Development AN INVENTORY OF POTENTIAL SITES FOR GREAT LAKES PUBLIC MARINAS AND BOAT LAUNCHING RAMPS This document was prepared by the Michigan coastal Management Program to locate ana inventory potential sites on navigable waters of the Great Lakes for future recreational marinas ana launching ramps which can proviae boaters access to the Great Lakes. In addition, it will serve as a reference to various committees ana local government planners in pinpointing certain areas which were particularly suitea to the needs or the recreational boating public." "CRITERIA IN SITE SELECTION "An eftort was made to examine each prospective site from all aspects. Some of the elements considered in the selection of each marina site include- Its location in regard to the area's general concentration of pleasure craft. Compatability with zoning and land use regulations and future plans of the local unit ot government. Compatability with adjacent land uses. Compatability ot recreational boating with commercial shipping, where applicable. Water depths; Distance from harbor entrance. Observations of soil ana shoreline conditions. Availability of utilities - sewer, water, electricity. A-9 Cost or land value if privately owned." Distance from harbor entrance is probably the principal reason that Saginaw County and Carrollton Township are not noted for such a site for marinas or launching facilities. Additional criteria for launching facilities in the study are noted below. "Criteria for launching facilities include the above items in general, as well as: Considerations for hard surfaced ramps to accomocate large trailerab@ie craft, with a minimum water dept@ of 2 1/2 feet at 20 feet from shore. Acreage available for parkin(4 of cars. and trailers and a minimum water frontage based on the.following table: Car-Trailer Units Acres Min. Frontage 25 1.5 200 ft. 50 2.0 200 ft. 75 3.0 260 rt. 100 4.0 320 ft. The summary of observations for Bay and Saginaw Counties in this report is: "BAY - SAGINAW COUNTIES "Shallow water along the west shore of Saginaw bay from Bay City has created problems at all launching sites. For example, the cement, deep water boat launching facility at the mouth of the Pinconning River is presently restricted to boats which have a draft of less than 18 inches. Submerged pilings in this low water create an additional hazard for small craft launched at this site. A-10 There are no natural rivers, lakes or inlets which contain sutticient 'water for marina docking along this west shore. "The Saginaw River with its width and depth, is shared by both commercial and recreational vessels with little or no conflict. It is a popular recreational port with public and commercial docking within the first tew miles from the mouth for approximately 1,000 boats. These facilities appear to be at or very near capacity with waiting lists ror docking space at most marinas. "There are two deep water launching sites, one on the west side of the river at the Bay City Veteran's Memorial Park and the other on the east side ot the river at Essexville. Combined they can accomodate parking for less than 100 vehicles and trailers." A,- 11 LITERATURE REVIEW RELEVANT PORT COMMENTS STATE of MIChIGAN COASTAL MMAGE14ENT PROGRAM AND FINAL ENVIRONMENTAL IMPACT STATEMENT July 1978 U. S. Department of Commerce Water.Transportation Areas - Problems and Program Concerns "Specific concerns of the Coastal Management Program relative to coastal water transportation areas include: "To avoid environmental and economic loss, careful planning and analysis is needed to determine the impacts of future port development. "To serve the future needs of development in the coastal area there is a need to establish a comprehensive transportation planning mechanism. "Recent efforts to extend the navigation season, the trends to larger vessels requiring increased water depths for passage and increase of channel and harbor maintenance requirements pose formidable challenges to the state's water transportation system. Comprehensive transportation planning must fully consider all impacts of vessel movement upon the coastal area." A-12 COMMENTS BY LARRY KARNES, MARINE TRANSPORTATION PLANNER MICHIGAN DEPARTMENT.OF TRANSPORTATION August 9, 1983 Saginaw River future crowded by: 1. Potential for system user fees now proposed as A. Uniform nationwide (good for MI but unlikely) B. Basea on Ad Valorem value of cargo, or C. No fees unaer 45' of aratt (very good tor MI) 2. Rail deregulation will make rail cheaper and potential greater use of unit trains by both Farm Bureau and Pillsbury. 3. Vessel availability very lintited - only about halr a aozen Canaaian ships that can work the Saginaw for grain. Best potential tor increase. 1. Surath-Luntz scrap yard type facilities. Note that an interview of terminal operators completed half a year ago found that for the Saginaw and other ports, there is trenLencous existing excess capacity. TERA study is still best literature. Saginaw is a small port that is by tar the Least active of the Great Lakes grain port6, A-13 COMMENTS BY: RAY LAWRENCE, WATERWAYS DIVISION MIChIGAN DEPARTMENT of NATURAL RESOURCES 1 - 322 - 1311 Mr. Lawrence's responsibility is primarily for moorings and marinas. I asked him about whether it is desireable (and Likely to get permits) to put a marina in the west channel of Carrollton Bar. Marina: Physically no problenL as long as no interference with navigation. Might be wake problenLS. Would suggest open finger-piers. Marketing uncertain - they have no pressure or knowledge of such a marina being wanted. Even a proposed boat launch in Essexville was cunsidered too far from the Bay. Uncertain about pleasure craft demand for river alone. (Advised I found no market). Boat Launch; Usually not a problem to put ir, a launch, though shore topography could be a factor. market again uncertain as state has no pressure for any such facility. August 1U, 1983 A-14 COMMENTS BY JERRY BREEN, DIRECTOR SAGINAW COUNTY ECONOMIC DEVELOPMENT COMMISSION Carrollton can play a significant role in economic development of urban Saginaw. Primary opportunities are in marine terminal and industrial. Rail also an asset. Key attractive parcel is Carrollton CQncrete, which could alternatively be: -Marine Terminal -Industrial -Amusement -Marina Phone discussion as of August 10, 1983 COMMENTS BY JON MERSMAN, DIRECTOR SAGINAW COUNTY METROPOLITAN PLANNIhG COMMISSION Best bet is maintenance of existing river port activities - expansion not likely. Concept of complementary amusement off of Sawmill is appropriate. Otherwise Marina terminal or industrial is best for Langschwager (Carrollton Concrete area) property. Consider possibility of a Weiss Street Bridge accross the Saginaw River, as is under some consideration by Saginaw Metropolitan Area Transportation Study. Phone discussion an August 10, 1983 A-15 SUMMARY OF PUBLIC MEETING COKMENTS CARROLLTON COASTAL MANAGEMENT PLANNING PROGRAM Monday, August 22, 1983 - 7:00 PM Carrollton Township Offices1645 Mapleridge Road Saginaw, Michigan 48bu4 Chairman Pete Zechmeister opened the public hearing at 7:10 PM. he briefly described the purpose of the study and then introduced Howard Kundinger, the planning consultant retained by the Township to assist it with the study. Approximately 35 people attended. Mr. Kunainger briefly outlined the scope, process and substance of the fe&eraily tunded study, which focuses on economic development (commercial and marine terminal), environmental and recreational opportunities and beautification of Carrollton Road. It was noted that marine terminal development and commercial growth are not likely to be a major factors. There are, though several potential recreational sites. And some simple road corridor improvements are possible. The major curcertainties along the waterfront are possible port user fee and/or elimination of dredging; the possilbe closing of the Sixth Avenue Bridge and a new crossing at Shattuck or possibly even Weiss Roads; and a possible new educational-visitor project proposed imrLkediately south of the Township in the City of Saginaw. Implementation can include grants, philantrophic otferings, service club involvements and Township appropriation. Comments by residents and business owners in attendance were as follows; A-16 wi th responses following the comrLent. -Flooa plain problems are very major at the prQperties citea as appropriate for recreation according to one property owner. Mr. Kunainger agreed that a flooding condition exists and said that the recreation would be passive in nature such as trails, picnic areas, nature study ana activities and facilities not seriously impacted by flooding. -A resident inquired as to the size of the Carrollton bar in acres. Mr. Kundinger said measurement depends on whether associated wetlands are included and the time of year, but that the 20 acres range is appropriate. one citizen commented that -it is possible to plan, but how cou16 the plans be implemented. it was explained that the Michigan Land Trust Fund is being solicited to acquire the Carrollton bar and wetlands. Other state and federal grants are'still available as are privatetrusts and service groups in addition to Township resources, which are limited. -Carrollton Road is so unattractive that piaLrks may be also unattractive according to one citizen. The beautification plans proposed can be simple, relatively inexpensive and effective according to Mr. Kuncinger. he explainea some of the techniques. -Mr. David Warner of Coastal Programs Unit of the Michigan Department of Natural Resources introduced himself. he spoke to the primary uses of the rivertront for marine ports, recreational and specialized, water-oriented uses. he felt that the proposed recreation uses were most compatible with flood plains and have been used as such in other communities. he noted, the educationai and natural values of the wetlana and Carrollton Bar are very attractive for such uses. Mr. Warner also stated that beautification of the road corridor and possible waterfront corridor parks have been very effectively used in other communities. The proposals are consistent with good riverfront management according to him. Furthermore, implementation can go far simply by using service ciubs, garden clubs and other local groups to stimulate road beautification. Mr. Warner also, commented that both the Waterways Division and Fisheries Division can be helpful in implementation. He advised that certain permits are required for any riverfront development. Chairman Zechmeister askea for a show of hands for those favoring Carrollton A-17 Road beautification. Somewhat more than half approved, no one objected.. Regarding recreation uses and possible public access, an estimated two-thirds supported such development. One person was opposed to recreation and public access because the State health Department advises against eating any Saginaw River fish. Chairman Zechmeister called for aaditional comments. Being none, he concluded the public meeting tor the coastai management Study. Recordea by Howard Kundinger. A-18 Michigan Natural Features Inventory 5tevens T. Mason Building Post Office Box 30028 Lansing, Michigan 48909 Sk 517 / 373-1552 July 26, 1983 A. Howard Kundinger Associates Box 1142, Saginaw, MI. 48606 Thank you for your letter of July 22. We have map-checked and computer-checked the area of concern to you--the Carrollton Bar vicinity-4nd have found no occurrences of endangered, threatened or "special concern" species in the vicinity. As to Saginaw County: in addition to the Bald Eagle we have records for a number of plant species of concern. None of these, so far as we know, occurs in the Carrollton area. But, for your records, they are: Habenaria leucophaea (Prairie Fringed Orchid)--state endangered, Isotria verticillaLa (Whorled Pogonia)--special concern, Habenaria ?T-av-a Tubercled hid)--special concern, and Trillium viride (A T Orc Trillium)--state threatened, This last species is not to be confused with the very common White Trillium (I. grandiflorum). The data which you supplied appears to be adequate for your purposes. The lists of endangered species are being revised as our program con- tinues to research the matter. The ones which you supplied are still applicable so far as the Saginaw River area is concerned. We hope we have been of service to you and that you will continue to' find our data adequate to your purposes. Sincerely, Stuart-Ouwinga Data Manager, Michigan Natural Features Inventory CARROLLTON TOWNSHIP RECREATION FACILITIES PARKS SUMMARY FOR TOTAL TOWNSHIP: POPULATION - 7,482 (Comparison with National Recreation Association Standards) NEED IMPACT IF PROJEC] ACTIVITY STANDARD/POFULATION TOTAL NEED AVAILABLE NET NEED IMPL&MENTI Baseball I per 6,000 1 1 0 0 Softball 1 per 3,000 2 4 0 0 Playfields 1 per 800 9 4 5 Tennis Courts 1 per 2,000 4 4 0 0 Multi-Purpose Courts: Shuffleboard 1 per 1,500 5 0 5 5 Outdoor Pool 1 per 25,000 0 0 0 0 Picnic Areas 1 per 2,500 3 0 3 1 Nature Trails 1 per 2,500 3 0 3 0 Bike Trails 1 per 2,500 3 0 3 0 Camp Areas 1 per 2,500 3 0 3 .2 Recreation Center 1 per 20,000 0 0 0 opt. 3 Ice Rinks 1 per 2,500 3 a 3 3 PUBLIC FACILITIES Library 0-1 0 1 opt. -ZONE NEEDS:, n Boat Launch a Waterfront Park Develoqment,. 7-7 Mooring at C.B.D. :SAGINAW Saginaw River Port Development 1,2 Demand Analysis Study MILES ZONE'3: L IE- G E N D A Existing Facility Riverfront Park, Proposed Facility 0 Riverfront P JR Recreation/Residential wiiimiiiiii Linear Waterfront Park Industrial Tour Pathway Bc')a aunch I VI Mooring at C.B.D. ZON 4: @-\t@'SAGJNAW Saginaw River Port Development 1'2 o 1 Framework Plan Study MILES ZONE 3: 9 LEGEND: C Waterfront Parks ........... industrial use Waterfront Park smon Marine Terminal Linear Park Proposed Marina proposed Boatlaunch . . . . . . . . . . 1% /* -'SAGINAW A Eel 1. ! rl a.@ZON8 i,.@ Saginaw River Port Development 1/2 0 1 Integrated Plan Stud'. MILES NOAA COASTAL SERVICES CTR LIBRARY 3 6668 14112005 7