ISSUES AND PERSPECTIVES
In April 2002, the City engaged The Downes Group, a program management and development consulting firm, to assist with managing the public process and formulating a preliminary plan. Several staff meetings and eight public workshops were held to discuss the downtown area. The material presented to the public by The Downes Group at the workshops, and used for developing the general consensus for the Conceptual Master Plan is available under separate cover (Public Workshops). The following information summarizes the topics discussed at each workshop, as well as key points of interest and concern for the attendees.
Setting Goals and Objectives (Workshop #1)
Introduction A land use plan is based upon the social, physical and economic composition of the municipality and region, as well as defined goals and objectives for future development. The following Goals and Objectives were established at the beginning of the Workshops:
Goals and Objectives for the Downtown Development Area -
GOAL: To maintain the quality of life, environment, and urban character of the City, while supporting economic growth.
OBJECTIVE: Plan the development components in a manner that supports well-planned, safe and inviting pedestrian and open space areas in and around the downtown.
GOAL: To establish the rationale for which the public sector will invest funds and/or take action for the purpose of economic development and growth in the Downtown.
OBJECTIVE: Determine what types of development activities should be supported with public funds and/or government action.
GOAL: To preserve the symbols of Torrington's heritage in a manner that complements economic development and growth for the City.
OBJECTIVE: Rehabilitate and reuse historically significant properties, when economically feasible, for business and residential uses in the Downtown.
GOAL: To preserve the character and livelihood of Torrington's traditional “Main Street” center.
OBJECTIVE: Strengthen the existing mix of uses located in the center, while encouraging the adaptive reuse of vacant building spaces for new and complementary uses.
GOAL: To encourage existing property owners to re-invest in their buildings, and retain and attract strong tenants, in order to increase employment and provide increased tax base and revenue for the City.
OBJECTIVE: Work with the local, State and Federal government departments and agencies to develop and fund incentive programs that can encourage private investment within the City.
GOAL: To design and implement a scheme of aesthetic improvements for the public pedestrian areas and traffic routes serving the Downtown.
OBJECTIVE: Provide a plan for funding public infrastructure and gateway improvements, such as sidewalks, lighting, benches, etc., where necessary, in order to complement private investment and marketing efforts for the Downtown.
GOAL: To take advantage of the natural beauty of the Naugatuck River as an economic development asset.
OBJECTIVE: Support the Naugatuck River Greenway Project in developing an action plan to improve the public access, enjoyment and passive recreational use of the river and its adjacent areas.
GOAL: To provide adequate parking facilities in the Downtown area to serve existing and new businesses and development projects.
OBJECTIVE: Plan for the necessary quantity of street, surface and structured parking to accommodate the retail, office, entertainment, commercial, recreational and institutional uses planned for the Downtown.
GOAL: To provide efficient and orderly movement of automobile and truck traffic through the City without detriment to the safety and congestion on local routes.
OBJECTIVE: Plan the development components in a manner that efficiently utilizes highway and main artery access through gateway areas into Downtown.
GOAL: To research and determine the projected marketability and absorption rates of sites provided for new business development in the downtown.
OBJECTIVE: Interview major commercial real estate brokerage firms serving the region, and establish a product and marketing plan for existing and new downtown space.
GOAL: To establish a pedestrian corridor within the Downtown that physically connects important public spaces and landmarks.
OBJECTIVE: Develop a well-marked walking route linking places like Coe Park, the Public Library, the other municipal buildings, the Naugatuck River, the Old Cemetery, etc.
GOAL: To support tourism in Torrington and the Region.
OBJECTIVE: Support the activities and developments that draw persons from outside the area to Torrington for the purpose of entertainment, sight-seeing and shopping.
GOAL: To recognize the need to coordinate the City's economic development efforts with other municipal planning efforts.
OBJECTIVE: Insure that the Conceptual Master Plan for Downtown successfully supplements the City's Plan of Conservation and Development, Storm Management Plan, Comprehensive Plan (Zoning), Historic District Plan, and other resource documents.
GOAL: To review and evaluate existing reports and plans relating to the revitalization and redevelopment of the Downtown and its environs.
OBJECTIVE: Compare the research and recommendations provided via these existing reports and present the findings for discussion at planned workshops.
GOAL: To develop a general consensus among the residents, property owners and business persons in Torrington as to the most acceptable plan for future development and land use for the Downtown area.
OBJECTIVE: Develop a Conceptual Master Plan for Downtown that embodies the support of the community, and that envisions the participation of both the public and private sectors in terms of funding and implementation.
Gateways, Open Space, Naugatuck River, Pedestrian Pathways (Workshop #2)
Gateways into the Downtown Area In order to ascertain the boundary of the preliminary Planning Area, the participants designated the main access routes into Downtown and the locations on those routes that represent gateway areas. Gateways should be identified by signage and various public improvements that continue into the core of the Downtown. The Gateway locations include points on East Main, Main, Water, Litchfield and South Main Streets.
Open Space/Parks - The areas designated as open space within the planning area remain the same, namely; Old Center Cemetery, Fuessenich Park, Coe Park, Torrington Towers, Christmas Village, and the Vogel-Wetmore School grounds. The river and its adjacent areas in Downtown are discussed separately.
Naugatuck River The west and east branches of the Naugatuck River meander through the planning area. The west branch is predominantly located adjacent to many of the areas recommended for revitalization and redevelopment. It is clear from discussion at the Workshops that participants believe the River can and should play an important role in Torrington's future. River improvements, including clean-up and aesthetic treatment of its banks, as well as development of a river walk with viewing and public access areas are deemed essential to complement investment in economic development projects and programs.
Pedestrian Pathways In order to assist with linkages throughout the Downtown for pedestrians that are working, shopping or visiting Torrington, the participants suggested well marked pathways connecting the open space and river areas. In this manner, a planned or casual adventure in Downtown can easily include both passive and active experiences that will leave a lasting impression, as well as a reason to return.
Existing Land Uses, Historic Preservation, Environmental Remediation, Market Conditions and Analysis, and Development Opportunities (Workshop #3)
Existing Land Uses There is a wide range of existing land uses within the planning area, including retail, office, commercial, residential, industrial and institutional/government. As in most downtown areas, the uses have developed through decades of economic growth and decline. Some uses are currently more suitable than others. The participants discussed the compatibility of existing uses and designated the areas that should be the concentration of rehabilitation and/or redevelopment.
Historic Preservation Since there are many historically significant properties in the planning area, the participants voiced a great concern for protection of these community assets in light of potential future development proposals. Currently, there is one Historic District in the planning area, and an additional District application being considered. There are also individual buildings on the National Register of Historic Places. It was recommended that all historically significant properties that lie within potential redevelopment areas be designated for preservation and reuse wherever financially and physically feasible. Adaptive reuse of these assets will assist in sustaining the heritage of the downtown area, which is important to all sectors of the community.
Environmental Remediation The issues surrounding environmental remediation of contaminated properties, and how they affect the purchase, reuse and/or redevelopment of such properties, were discussed. The role of government in regulatory activities, as well as the significant costs, timelines and liabilities associated with brownfields redevelopment need to be considered with certain properties in the planning area. The Developer has provided the City with preliminary environmental information regarding a number of properties in the planning area.
Market Study - There are two sources for relatively current market information for Torrington; the Initiative and the Harrall-Michalowski Market Study. Both were reviewed and presented for discussion at the Workshops. In summary, strong markets seem to exist for new development of regional and tourist-related retail, as well as young professional and empty nester housing in the Downtown Area. The development areas shown on the Plan anticipate these market segments and designate appropriate areas with uses.
Development Opportunities The new development opportunities targeted by the City via the Plan are comprised of a.) regional retail with anchor and complementary stores, b.) tourist-oriented retail, c.) arts and entertainment venues to complement activities like the Warner Theatre and the Nutmeg Ballet, and d.) market-driven residential via loft, apartment and/or condominium developments. All proposed new developments and associated uses should complement the existing and traditional services located in the Downtown, and provide economic spin-offs in the form of new jobs and increased tax revenue. The Plan is arranged in a spatial manner that attempts to offer possible redevelopment areas adjacent to, or in close proximity to the Central Core. Therefore, any well-planned new
developments and uses may access existing buildings and spaces within the Central Core as additional resources.
Mix of Uses and Areas for Development (Workshop #4)
I. Based upon the information provided at the Workshop, the participants discussed various existing and potential new uses for the Downtown. Areas recommended for building rehabilitation versus clearance were addressed at length. Areas of underutilization with potential for large-scale new development were also earmarked. Although, without necessary site plan review and other regulatory attention to specific development proposals, it is difficult to establish exact boundaries for certain types and size of development. The Plan can only be conceptual at this point, but should assist the City by providing some benchmarks for reviewing and supporting future economic development efforts.
II. The Plan Map (referenced and shown below) outlines areas within the planning area for various land use considerations. The legend and notes provided summarize the important interests and concerns associated with certain locations and activities.
Parking and Traffic Issues (Workshop #5)
Parking Although the reports available at the time of the Workshops did not establish the need for more aggregate parking spaces in the Downtown, the anticipation of new development opportunities and proposals in the immediate future necessitated serious discussion on parking matters. Using baseline information on sizes of retail facilities likely to locate in the Downtown, based upon existing market data, a projection of related parking demand was presented. Twenty-five hundred (2,500) new spaces were recommended to service various locations and uses. Parking garages and decks were located in a manner to disperse traffic, provide convenient access for customers/tourists/workers, and buffer the view of the parking facilities. In addition, any surface parking needed to
serve new development in the upper Water Street/Migeon Avenue Area should not abut the residential neighborhood, but should be integrated toward the Church Street location. Lastly, surface-parking areas along the north side of the river should provide pedestrian access to the river as well as the stores on Water Street and in the Central Core.
Traffic The probable increase in traffic, and its effects on access and travel to and through the Downtown was discussed at the Workshops. The five (5) major routes into and from the Central Core will experience the most change in use due to the anticipated new development. The five-way intersection at Main Street and the river represents an area of great concern relative to capacity and design. In addition, the great majority of participants did not support the idea of reconfiguring that intersection if it included the demolition of adjacent properties. Further review of traffic patterns and capacity issues will need to be conducted by DOT and the State Traffic Commission at the time any significant development proposals are submitted for consideration.
Role of Public and Private Sectors (Workshop #6)
The general roles of the public and private sectors in economic development were the topic of this Workshop. In addition, the participants discussed the status of the proposal by Torrington Downtown Redevelopment LLC, the Agreement by the City designating the Developer, and the Special Act by the State Legislature earmarking public funds for development in Torrington.
The Workshops were held between May and November of 2002 and the attendance at each Workshop averaged over 70 persons representing residents, business owners, property owners and government officials.
It is important to note that the intent of the City in presenting these Workshops and in developing this Conceptual Master Plan was to publicly address the broad range of issues surrounding the City's future economic growth. This report and the Municipal Development Plan that may flow from this effort must embrace objectives and activities that can be supported by all the stakeholders, including the community at large, the State, business owners, property owners, private investors and developers.
The product to date is conceptual in terms of land use and geographic designations. It shall serve as a basis for future technical and market review by the State through the Connecticut Environmental Policy Act (CEPA) review process. This Conceptual Master Plan does not provide the technical and market analysis that is necessary to evaluate and decide upon actual development parameters. It does, however, represent the consensus of the participants at the Workshops, given the general knowledge and information available for resource.
With the assistance of TPA Design Group, a (Proposed) Conceptual Master Plan for the Downtown Area has been prepared for review and adoption. It includes a.) a mapped depiction of the planning area with notes and land use designations (Plan Map), and b.) a narrative description of the context and the recommended land uses, both immediately following.
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