master plan update - City of Boca Raton

august 27 2007downtown boca ratonmaster plan updateurban design associates

downtown boca ratonmaster plan updatePREPARED FORCommunity RedevelopmentAgencyCity of Boca RatonPREPARED BYUrban Design AssociatesCONSULTANT TEAMGlatting Jackson Kercher AnglinLaQuatra Bonci AssociatesLive, Work, Learn, PlayZimmerman Volk Associatesi

CONTENTSSECTION A: INTRODUCTIONUpdating the Vision 2Process 4Issues 8SECTION B : GENERAL RECOMMENDATIONSPlanning Strategy 14The Plan 16SECTION C : FRAMEWORKSFrameworks 22Design Guidelines 34SECTION D : QUARTERSQuarters 44SECTION E : INITIATIVESInitiatives 52SECTION F : IMPLEMENTATIONImplementation 66APPENDIX : TECHNICAL ANALYSIS(UNDER SEPARATE COVER)Public ProcessTrafficCommercial and RecreationResidential Marketiii

introduction

SECTION AINTRODUCTIONupdating the visionThis Master Plan Update was commissionedto provide a framework for successfullyrealizing the Vision for DowntownBoca Raton in the context of theissues it faces today. The original Visionfor Downtown Boca Raton was clearlyarticulated in 1982:“The community of Boca Raton isunique. As part of one of the most rapidlygrowing regions in the country, ithas maintained standards of excellencein the residential neighborhoods whichensure continuing economic vitality andenvironmental quality. Now is the timeto apply the same standards of excellenceto Downtown, before its declineas a commercial center and accelerationof blight go any further. Redevelopmentimplies a long-range commitment to apublic policy to enhance the Downtownfor present and future generations tolive, work, shop, and enjoy.”Much was accomplished as a result ofthat vision and the plans that followed.SANBORN SQUARE This early effortto create a public space in the center ofDowntown provides a quiet and relaxingplace along Federal Highway anda setting for the historic Town Hall byAddison Mizner.MIZNER PARK One of the most recognizedand celebrated urban developmentsof recent times, this mixed-useproject created an urban focus for cultural,retail, business, and residentialuses in Downtown.ARTS AND CULTURE The Art Museumand Amphitheater, developed as partof Mizner Park, have become the focusof cultural life for the City.TAMING OF FEDERAL HIGHWAY Bycoordinating traffic on several arterials,it was possible to prevent the wideningto six lanes of this major thoroughfare.PLAZA REAL SOUTH A public easementthrough a private developmenthas created an urban street lined withrestaurants and mixed-use buildings.With Mizner Park, Boca Raton led theway in developing urban town centersand reestablishing the idea of a Downtownon the Florida Coast. It became amodel for others to follow. As a result,it now finds itself in competition withnewer, more urban developments. Andthere is an increasing sense that theDowntown has lost its way with respectto achieving the vision created in 1982.For these reasons, the City commissionedthis Plan Update to provide aframework for making informed decisionson the location, type, and design ofdevelopment, and on priorities for funding.This Master Plan Update will alsobe coordinated with the ComprehensivePlan Update and the Multi-ModalTransportation District efforts.Town HallSanborn SquareMizner ParkPlaza Real South2

Plaza Real SouthMizner BoulevardGlades RoadDixie HighwayFederal HighwayIntracoastalWaterwayNW Boca Raton BoulevardNW First AvenueNorth Ocean BoulevardPlaza RealCrawford BoulevardNE First AvenueCity HallWest Palmetto Park RoadDixie HighwayFederal HighwayMizner BoulevardEast Palmetto Park RoadSouth Ocean BoulevardBoca Raton Resortand ClubLake Boca RatonCamino Gardens BoulevardEast Camino RealAtlanticOceanEast Camino RealDixie HighwayFederal HighwayDowntown Boca Raton Today: All of the buildings are color coded by type of use. Public open space is indicated in dark green.SINGLE-FAMILYRESIDENTIALMULTI-FAMILYRESIDENTIALCOMMERCIAL /MIXED-USEINSTITUTIONSINDUSTRIALPARKS ANDOPEN SPACE3

A great deal of common groundexists on the need for the Boca RatonDowntown Master Plan to:» Improve the public realm,» Improve connectivity for peopleand vehicles,» Support existing special places andprovide ideas for new special places,and» Create a sense of wholeness toDowntown.Building on this common ground,the Downtown Master Plan is beingdeveloped so that it is able to serve asboth a tool to guide decision-makingrelated to Boca Raton’s downtown, andto provide ideas to inspire existing andnew developments to provide the diversityand type of development for aneconomically healthy and sustainableDowntown Boca Raton.An informal group discussion at an open house meetingCommercial X-Ray analysis and a preliminary framework drawingCitizen presentation at a public meetingProposed road section along Palmetto Park Road5

SECTION AINTRODUCTIONGreen dots show participants’ views of Boca Raton’s strengthsSTRENGTHSParticipants were provided a base mapof Downtown Boca Raton as well asthree green, three red, and three bluedots. They were asked to use the dotsto identify those places on the map thatthey considered to be strengths (greendots), weaknesses (red dots), and priorityareas for change that would helpachieve their vision for the future (bluedots). The summary of each of the dottypes provides valuable insights.The pattern of green dots creates anorth /south pattern reflecting the areasthat have been most worked on duringthe past 20 years.»»»»»»»»»»»»»»Mizner ParkRoyal Palm PlazaSanborn SquareMix of usesLike that downtown is not toodenseTown Hall, heritageBoca Raton Resort and ClubOceanfrontSilver Palm ParkCivic uses – City Hall, LibraryLandscapingMix of restaurantsCultural activitiesAdjacent residential areasPhotos showing some of Boca Raton’s strengths:Sanborn Square, the Boca Raton Resort,Mizner Park, and the beach.6

WEAKNESSESThe red dots, or worst places, are generallyin an east / west pattern. The greatestconcentration of these are in the centerof Downtown. This suggests that thenext phase of effort needs to completethe north /south connections in this areaand deal with east / west ones, especiallyalong Palmetto Park Road.Red dots highlight weaknesses in Boca RatonCONNECTIONS»»»»»»Not pedestrian-friendly; Downtownlacks connectivityDifficult experiences in traffic andintersectionsLack of connection to waterfront /access to waterNot enough green spaceIntersection of Federal and PalmettoPoor entrances and exits(except southern)PLACES»»»»»Palmetto Park RoadAbandoned Wildflower propertyNo sense of placeRundown propertiesStretch of Dixie Highway, behindMizner ParkAS WELL AS…» Parking» Uncertainty and stalleddevelopment» Lack of relevant activitiesPhotos illustrating the problems of Boca Ratonsuch as street widths and commercial uses7

SECTION AINTRODUCTIONissuesAt the most fundamental level, the issueis whether Downtown can become acohesive Downtown. It is now perceivedto be a collection of separateplaces. On the positive side, it has all ofthe functions you would expect to findin a Downtown, including City Hall,museums, a library, post office, officebuildings, shops, educational uses, performancevenues, parks, and an increasingamount of residential uses. But, itdoes not have the coherence that bringsall of these uses together.The portrait drawing on page 3 clearlyillustrates one of the key problems facingDowntown. It is a narrow, north /southband of mixed-use development, cut offfrom other parts of the City. Downtownis constrained by the barriers created bynorth /south arterials and the railroadlines which have made it difficult to createa unified Downtown. Most people’sperceptions of Downtown’s boundariesinclude the railroad tracks as the westernedge, or even Federal Highway. And yet,City Hall, the library, and the Children’sMuseum are west of that boundary. Peopleexpress great pleasure about walkingamong uses in certain specific areassuch as Mizner Park, but experiencegreat difficulty in walking across majorstreets. As a result, Downtown presentsitself as a collection of separated and isolateddestinations. There is evidence thatsome businesses are leaving and that thecompetition from more urban and walkabledowntowns is drawing customersthat would otherwise come here.As illustrated on page 9, most of thecurrently approved development proposalsare located within this same narrownorth-south band. Each is designedwith concern for the public realm immediatelyaround it, but without an overallframework, it is difficult to visualize howthey would all work together to create aDowntown.In short, Downtown Boca Raton hasnot been able to maintain its early leaddue to a series of factors that have preventedthe vision from being fully realized.PEDESTRIAN NETWORKAn essential element in successful downtownsis an interconnected network ofstreets and open space that providescomfortable pedestrian connections.Boca Raton has successful pedestrianpockets, but fails to provide a pedestriannetwork that links its various parts. Aparticularly vivid example can be seenon Palmetto Park Road where, despiteefforts to create a pedestrian-friendlyenvironment, past programs have beenunsuccessful in doing so. The emphasisgiven to through traffic, combined withroad and sidewalk design that encouragevehicles to travel at high speed, hasmade it impossible to provide this vitalattribute.DEVELOPMENT PROCESSWhile the original vision called foran holistic approach to developmentin which each part contributes to thewhole, most projects are conceived anddealt with by the City on a project-byprojectbasis.Existing conditions along Federal Highwayand Palmetto Park Road8

Plaza Real SouthMizner BoulevardDESIGN GUIDELINESOriginally conceived to simplify thedevelopment process, the existing designguidelines have become cumbersome.They are overly simplistic with the samerequirements irrespective of site size orlocation. This has resulted in a uniformrather than diverse built result.DEVELOPMENT MARKETIn recent years, the strong, high-endinvestor and second home market forcondominiums has produced very highland values and units which are notoccupied much of the year, if at all. It hasnot been considered feasible to developyear-round housing in a wide range ofprices because of the high land cost.This Presents an impediment to thelong-term viability of Downtown.Crawford BoulevardCity HallWest Palmetto Park RoadNW Boca Raton BoulevardDixie HighwayNW First AvenueFederal HighwayNE First AvenuePlaza RealMizner BoulevardEast Palmetto Park RoadBARRIERSThe combined barriers which definethe edges of Downtown have causedthe City and the development communityto focus all of their efforts in anorth-south corridor, limiting the rangeof development opportunities and preventingthe creation of a truly cohesive,real Downtown.Portrait of existing conditions in Boca Raton, including proposed future developments, as ofMarch 2007Diagram and photo of existing barriers within downtown Boca Raton9

SECTION AINTRODUCTIONBlue dots mark participants’ visions for Boca RatonUnderutilized land in the spine area and “pedestrian calming” elements along Palmetto Park RoadAreas for future visions and improvement: 1st Street, pedestrian realm, and Federal HighwayVISIONSParticipants identified a number of prioritiesfor change in Downtown BocaRaton by placing blue dots on the map.These priorities point to specific placeswhere change is needed. The most denseclusters of blue dots show support fortaking action to:» Improve Palmetto Park Road East» Take action on the Wildflowerproperty» Address the future of the ‘Spine’areaIn addition to identifying the needto improve specific places, there was alsowidespread support for creating a Downtownthat:» Is more pedestrian-friendly» Provides a mix of people and placesto go, and many different reasons tocome Downtown» Has a variety of building types andarchitectural harmony» Has a strong cultural atmosphere» Provides people with the recreation,leisure, and outdoor options they’relooking for, while also meeting residents’daily life needs» Has an identity» Connects people to water» Is a place for families to live andgrow; offers quality of place to livework-playand affordable housingfor employees» Takes advantage of the demographicaffluence, while also creating theconditions that allow small momand-popshops to thrive.10

SUMMARY OF KEYMESSAGES TO DATE»»»»»Many people are excited by theopportunity to strengthen DowntownBoca Raton. They see a needand opportunity for the MasterPlan to connect a series of strong,yet currently disconnected, parts ofDowntown.There is widespread agreementregarding many of the steps thatcan be taken to strengthen theconnections in Downtown. Thisincludes creating and enhancingpedestrian, cycling and transitconnections while still facilitatingsmooth car access and parking.Many people are looking at BocaRaton’s Downtown and comparingit to what’s happening in nearbyareas like Las Olas and DelrayBeach. They are interested in makingBoca Raton a place that hasmore of the activity, life, and feel ofthese places, and also better meetsthe needs of the residents.The Intracoastal Waterway and theAtlantic Ocean are great assets toDowntown Boca Raton. The Citywould benefit from easier accessfrom Downtown to enjoy the water.It is important to take advantageof opportunities to preserve andcelebrate Boca Raton’s heritage.This should be done in a way thatfits with the other elements of thefuture vision many people have forthe City.»»In order to make the Master Plan areality, some critical policy changeswill be required to facilitate publicand private investment as well asdevelopment and design decisions.In response to the ideas testedduring the Charrette, participantsidentified and confirmed that priorityareas for actions include:› Making it easier to cross CentralPalmetto Park Road – this is acritical Downtown connection.› Making it possible to connectsouth from Mizner Park to RoyalPalm Plaza.› Making more of Sanborn Square,how it’s used and how it’s connectedto the surrounding area.› Improving Palmetto Park RoadEast, including dramaticallyimproving the streetscape andexperience for people makingtheir way to the waterfront.GOALS AND PRINCIPLESFrom this input and our analyses, wehave identified a set of Goals which canserve as Planning Principles:» Create a unique identity for DowntownBoca Raton as the cultural,civic, and specialized retail center ofthe region, with a full complementof residential accommodations andrecreational amenities.» Create a comfortable pedestrianscaleenvironment connecting allof the parts of Downtown, whileproviding appropriate accommodationof vehicular movement.»»»»Provide an appropriate mix ofoffice, residential, hotel, retail, cultural,civic, and recreational uses.Provide a coordinated strategy forparking and access.Provide the basis for a diversearchitectural and environmentalcharacter for the various parts ofDowntown that both reflect its historyand current scale.Enhance Downtown’ s connectionto the waterfronts and its quality ofopen space.11

general recommendations

SECTION BGENERAL RECOMMENDATIONSplanning strategyDuring the planning process, the needto create a better pedestrian networkconnecting Downtown’s various partsemerged as the participants’ top priorityfor this part of the city.This straightforward goal will bedifficult to achieve given the physicalconstraints of Downtown, especially thenorth/south barriers.However, it can be accomplishedwith a collaborative effort among publicagencies, especially those responsiblefor transportation, private developmentinterests, and citizens groups. Theseries of diagrams on this page suggestsa strategy for connectivity which can beaccomplished incrementally. Each publicworks improvement, each individualdevelopment, and each individual propertyimprovement should be done withinthis strategy. In that way, the collectionof individual efforts will result in a unifiedwhole.The sequence illustrates how totransform Downtown from a collectionof separate destinations into an integratedDowntown with a collection ofunique addresses.SEPARATE DESTINATIONSA series of successful but containedand separate destinations exists, withpedestrian-scaled environments withinthem, but without connection to eachother. These include Mizner Park, SanbornSquare, Plaza Real South, parts ofRoyal Palm Plaza, Silver Palm Park, andCamino Real west of Federal Highway.BARRIERSThe design of many streets and lack ofadequate sidewalk areas, together withthe high speed of traffic on some of themajor arterials, cause the street patternto form a series of barriers that preventconnections between destinations.14

A NEW GREEN NETWORKBy systematically improving sidewalks,streetscapes, pedestrian crossings, andpublic open space, it is possible to createan interconnected network that willencourage people to use the whole ofDowntown instead of one isolated destinationat a time.THE GREEN NETWORK ANDTHE STREET PATTERNThe basis of this network is already inplace. It can be extended in some areaswithout conflicts with key vehicularroutes. The most critical points are thosein which the pedestrian network crossesmajor arterials or runs along them.Key areas include Federal Highway,NE and NW Second Street, PalmettoPark Road, Boca Raton Boulevard, andMizner Boulevard.A COLLECTION OFQUARTERSThe green network makes it possible toreinforce the existing destinations andanchors as well as to connect them. Italso provides a framework for additionaldevelopment around and between thoseanchors. Because the various areas withinDowntown have different charactersand uses, we recommend that definedareas be established within Downtown,each with its own character and mix ofuses. These areas could be thought ofas neighborhoods or ‘Quarters,’ suchas the Mizner Park Quarter, The SanbornSquare Quarter, etc. Within eachQuarter there should be a mix of usesincluding residential, office, cultural,retail, civic, and entertainment, but thebalance of uses, scale of buildings, andcharacter of public open space would bedifferent.15

SECTION BGENERAL RECOMMENDATIONSthe planTo implement this strategy, the MasterPlan Update is organized into two categories:Frameworks and Quarters.FRAMEWORKSThe creation of an interconnected networkof pedestrian-scaled streets andpublic open space will provide the muchneeded connectivity between the partsof Downtown. It can be achieved as acollection of individual initiatives andefforts, rather than one massive operation,but there needs to be a consistentapproach to management and design.QUARTERSThe Frameworks serve a series of Quarters,each with its own character andtypes of uses. New development withineach quarter should be designed withcareful attention to the way in whichthe proposed development will support,enhance, and build upon the assets whichexist today. The Quarters include:Open Space Framework12Mizner Park Quarter, a parklikespace serving retail, offices, shops,and cultural uses;Sanborn Square Quarter, a diversemix of uses and building types adjacentto Sanborn Square;42153Plaza Real South Quarter, a busyoffice and retail quarter with tallbuildings;345City Hall Quarter which includesCity Hall, the new library andoffice uses related to the futuretransit stations;Palmetto Park East Quarter whichwill create a pleasant walk to theIntracoastal waterway; andQuarters Diagram616

6 Camino Real Quarter which is adiverse mix of separate addressesconnected by well-landscaped roads.The Master Plan Update identifiesa series of Initiatives within eachof these Quarters. They all combineimprovements to the public realm andthe Framework as well as private development.In this way, ‘whole addresses’can be created with each developmentinitiative. The plan drawing on the followingpage highlights potential developmentsand public improvements ineach of the Quarters. The perspectivedrawings on these pages illustrate theway in which improvements to the publicrealm should be coordinated withdevelopment projects.Perspective of an improved Palmetto Park Road, west of Federal HighwayPalmetto Park Road, east of Mizner Boulevard, with an improved residential and pedestrian environment17

SECTION BGENERAL RECOMMENDATIONSA view of a revised intersection crossing Palmetto Park Road at Plaza Real SouthImproved street crossing for NE First Avenue at NE Second Street south of Mizner Park18

Plaza Real SouthMizner BoulevardNW Boca Raton BoulevardNW Fourth StreetNW First AvenuePlaza RealNW Third StreetCrawford BoulevardNW Second StreetNE First AvenueEast Palmetto Park RoadDixie HighwayEast Royal Palm RoadFederal HighwayMizner BoulevardSE Fifth StreetSW Seventh StreetBoca Raton Resort and ClubEast Camino RealIllustrative Master Plan: Potential future development programs are illustrated in bold colors19

frameworks

SECTION CFRAMEWORKSframeworksThe proposed Framework of Streetsand Public Open Space is illustrated inthe large diagram on the facing page. Itemphasizes the continuity of pedestrianexperience throughout the Downtown. Toachieve this, a series of modifications tothe current framework are needed. All ofthese are essential to the effective developmentof the Multi-Modal TransportationDistrict which will change the basis forevaluating development potential.Design Guidelines are another typeof Framework that gives form to development.We have included suggestionsfor revising those guidelines in thissection because they are based on thecharacter of the streets and public openspaces on which they are located.ESTABLISH A HIERARCHYOF STREETSTo use new techniques that can bothaccommodate the needs of traffic andcreate a pedestrian environment effectively,it is first necessary to recognizethe different categories of streets andtypes of traffic.APPLY URBAN STANDARDSTO DOWNTOWNTHOROUGHFARESFlorida’s version of the Context-BasedThoroughfare Program provides anopportunity to introduce urban standardson through streets in Downtown.The City should consider applyingurban standards to the portion of FederalHighway between Camino Real andMizner Boulevard, East Palmetto ParkRoad of Crawford Boulevard, and allof Mizner Boulevard, and North EastSecond Street.CREATE PEDESTRIANCROSSWALKSKey connections including NE SecondStreet at Plaza Real North and PalmettoPark Road at Plaza Real South shouldinclude pedestrian lights, expandedcrosswalks, and streetscape improvements.IMPROVE SIDEWALKSImprove the pedestrian environmentwith a combination of public improvementsand enhanced design guidelinesfor private development.IMPROVE AND COMPLETEBIKEWAY NETWORKEnhance the safety of bicycle lanesthrough design changes and fill gaps inthe existing system.DEVELOP A PARKINGPROGRAMDevelop a Parking Program that combinespublic garages and public parkingspaces on private developments.SUPPORT TRANSITINITIATIVESSupport Transit in all forms, includingregional rail on the FEC line, Shuttlesto Tri-Rail, and the Downtown Circulatoras part of the parking system.REVISE DESIGNGUIDELINESRevise the Design Guidelines to encouragediversity of building form andenhancement of the public realm.Urban street standardsCreate pedestrian crosswalksImprove sidewalksParking programTransit initiative22

Plaza Real Real South SouthMizner BoulevardBoulevardNW Boca Boca Raton Raton BoulevardBoulevardPlaza RealNW Fourth StreetNW Third StreetCrawford BoulevardBoulevardNW Second StreetNE NE First First Avenue AvenueCity HallNW First AveDixie HighwaySE First StreetEast Palmetto Park RoadEast Royal Palm RoadFederal Highway HighwayMizner BoulevardBoulevardSE Fifth StreetBoca Raton Resortand ClubEast Camino RealFramework Diagram: Streets and Public Open Space23

Mizner BoulevardSECTION CFRAMEWORKSSTREET HIERARCHYThe engineering and design of some ofthe streets in Downtown are based onstandards that generally apply to suburbanconditions, encourage high speedtravel, and are not consistent with thegoal of creating a unified downtown. Inrecent years, a series of advancementsin the art of street design have providedsome techniques for both serving trafficneeds and creating an appropriate urbanenvironment. To use these techniques, itis first necessary to recognize the differentcategories of street and that a hierarchyexists based on the volumes andtypes of traffic. With this agreed to, itis possible to modify the detailed designof existing streets to be consistent withtheir urban function and the nature oftraffic using them. The hierarchy wouldinclude the following idealized modelswhich then serve as a model for revisionsto existing streets:TYPE AType A streets are high mobility streetsthat may carry a great deal of throughtraffic but which also need to providesafe and comfortable pedestrian environmentsassociated with mixed andsometimes dense land uses. The designof these streets must enable pedestriansto cross safely at key points. Theseinclude Federal Highway, PalmettoPark Road West of Federal Highway,Camino Real west of Federal Highway,and Dixie Highway (limited pedestrianrole at Second Street and Palmetto ParkRoad).TYPE BType B streets provide a combination ofaccess and mobility both of which areimportant to the overall network. TypeB streets carry some through traffic, buttypically at a lower volume than TypeA. These are often four lane (or more)Street Type DiagramDixie HighwayNW Second Streetdivided streets located in more sensitivecontexts in which increased pedestrianmovements need to be respected. Theyinclude Palmetto Park Road betweenFederal Highway and Mizner Boulevard,Mizner Boulevard, and CaminoReal east of Federal Highway.TYPE CAccess streets, Type C streets are eitherthree-lane streets or two lanes with amedian. They provide vehicular access toparking and pedestrian access to homesand businesses and have the highestlevel of activity and conflicts. As such,they should be designed to encourageslower speed traffic and to serve pedestrian-scaleuses along them. SecondStreet and East Palmetto Park Road ofMizner Boulevard are examples of TypeC streets.Federal Highway HighwayNE First First Avenue AvenueEast Palmetto Park RoadTYPE DType D are two-lane local streets whichcarry primarily local traffic. These areoften streets that provide access to residentialareas. Vehicle speeds should below in anticipation of unexpected pedestrianmovements (such as children).Dixie Highway, indicated in red inthe plan diagram, will carry the mostthrough traffic and for much of itslength will accommodate higher speed.Additional landscape treatment shouldbe provided in the public right-of-wayon both sides of the road, especially theeast side of the road. In the area betweenPalmetto Park Road and Second Street,traffic should be slowed down in orderto facilitate pedestrian cross walks.jaywalk.24

TYPE A12' 8' 6' 7' 11' 11'11' 11' 7' 6' 20'TYPE DTYPE CTYPE B8' 6' 6' 7' 10' 10'10' 10' 6' 20'14' 6' 8' 10' 10' 8' 6' 6' 8' 14' 6' 8' 10' 11' 10' 8' 6' 6'Alternative Type C as three-lane street with a center turn lane5' 5' 6' 6' 9' 9' 6' 10'Detailed cross-sections of street types25

Mizner BoulevardBoulevardSECTION CFRAMEWORKSURBAN STANDARDS FORDOWNTOWN THOROUGHFARESThe idealized models when applied toexisting streets suggest a series of modifications.These can apply to the streetsindicated in the diagram on this page.A more detailed description is providedfor both Federal Highway and East PalmettoPark Road.Dixie HighwayChange Traffic Signal Cycles inthe Pedestrian ZoneBy switching to shorter traffic signalcycles (e.g., 60 seconds instead of 120seconds), pedestrians will be able to crossmore frequently and not be tempted tojaywalk. Capacity will be preserved oreven enhanced if these shorter cycles aretimed to create a 25- to 30-mph vehicleprogression speed.NW Second StreetFederal HighwayNE NE First Avenue AvenueEast Palmetto Park RoadEliminate Right Turn Lanes In thePedestrian ZoneThe presence of dedicated right-turnlanes is an anti-urban, anti-pedestrian(longer cross walks, high speed rightturns) element that typically is not basedon capacity needs, but on preservingvehicle speed in the moving lanes. Sincethe traffic signal timing would be set toa speed of 25 to 30 mph, speed preservationshould no longer be a goal.Add Traffic Signals / CrosswalksAs speeds are reduced and balance isestablished, urban traffic signal spacingwill improve both pedestrian and vehicularaccess and circulation. The 300- to325-foot spacing of intersections of theexisting street grid is a perfectly acceptablespacing of signals in a downtown.Streets with improvements in urban standardsThrough vehicles would still be able toprogress along the timed corridor at 25to 30 mph.As the development of such a streetprogresses, more time-intensive effortsto balance the street should follow.These may include:» Lane Width Reduction: 10- or 11-foot lanes are appropriate at targetspeed.» Eliminate Shoulder: No shoulder isrequired on this urban street.» Median with Trees: Verticalelements tend to reduce vehiclespeeds.»»»»»»Add Edge Vertical Elements (trees,furniture, parking)Reduced Length Left-Turn Lanes(Resulting from shorter signalcycles)Add People or Evidence ofPeople (tables, chairs, etc.)Pedestrian-Scale LightingBuilding HeightUrban Signage (edge razor signsand similar); perpendicular tostorefronts26

Federal HighwayFederal Highway is, of course, an importantroute for vehicular movement.Solutions along a shared street such asthis should be focused on creating anappropriate balance between driver andpedestrian needs (as opposed to wants).Vehicles need adequate capacity alongthe corridor, but they do not need todrive at excessive speeds. Pedestriansneed a space that is safe and comfortable,not one that encourages disorganized ordangerous crossings. Fortunately, severalrelatively low-cost initial design techniquescan be used to achieve the desiredbalance among competing needs.These include changing traffic signalcycles, improving crosswalks, addingpedestrian signals and trees, and eliminatingturning lanes. As new developmenttakes place, or as funding becomesavailable, modifications to street widthcan be considered.Existing conditionsFuture condition of new development alongFederal Highway with setback and/or curbmodificationsIntersection diagram of the existing conditionof Federal Highway at Palmetto Park RoadIntersection diagram of Federal Highway atPalmetto Park Road, after improvements aremadeBefore (left) and after (right) sections of NE Second Street at Plaza Real27

SECTION CFRAMEWORKSEast Palmetto Park RoadTwo alternatives have been tested forPalmetto Park Road, both with the goalof establishing a better pedestrian-vehiclebalance.Alternative 1: Thee-lane section withmedian. The effects of creating a threelanesection of Palmetto Park Roadbetween Mizner Boulevard and NE 5thAvenue do not appear to be overly burdensome.The Boca Raton DowntownDRI Report indicates that 865 cars perhour in the peak direction are expectedby the year 2020. This is well withinthe capacity of one moving lane in eachdirection, plus a center turn lane, in asection with no traffic signals. Accordingto City Engineering staff analyses,the intersections on either end of thecorridor (Palmetto Park Road at MiznerBoulevard and NE 5th) would operateat no worse than vehicle level of serviceD under the proposed configurations.Even if this level of capacity werenot available, reduced peak hour vehiclelevels of service in a downtown areaare common and can even be desirablewhen trying to create a balancedenvironment. In addition to daily traveldemands, this street is an importantemergency evacuation route for islandresidents. A population of the sizeexpected to be on the island could easilybe evacuated over a two-to fourhourperiod in two outbound lanes inthe case of weather or other type ofemergency, depending on traffic controland street operation plans. A three-lanesection would allow this two-lane outboundtype of operation to occur easily.As indicated in the plan, the middlelane should have a different paving surfaceand would also be used by emergencyvehicles or when there is a vehiclestopped in the moving lane. It can alsobe a second stacking lane for cars waitingwhen the bridge is closed.The detailed design of theseimprovements will require special careto align with the lanes on the bridge.We recommend that the transition takeplace east of Fifth Avenue.Alternative 2: In the course of the planningprocess, the design team evaluatedan alternative concept. By eliminatingboth the parking lane and the median,it will be possible to both provide fourmoving lanes and expand the width ofthe sidewalks on both sides. The Citycould consider operating this as a fourlaneroad during the day and then usethe outside lanes for parking in the evening.The cross section indicates that thesidewalk areas have sufficient dimensionto encourage the landscape treatmentillustrated in the perspective. However,there is a greater distance from curb tocurb for crosswalks located at intersectionsthan the three-lane option.We recommend the three-laneoption, in part because it provides themost flexibility for emergency vehiclesin the event of a blocked lane.Before view of East Palmetto Park RoadImproved pedestrian environment on EastPalmetto Park Road28

Existing plan (left) and section (right) of East Palmetto Park Road12' 6' 5'-6'' 45'5'-6'' 6' 10'Revised plan (left) and section (right) of East Palmetto Park Road,showing a three-lane section17' 11' 17'Revised plan (left) and section (right) of Palmetto Park Road, showinga four-lane section10' 10' 10' 10'29

Mizner BoulevardBoulevardSECTION CFRAMEWORKSPEDESTRIAN CROSSWALKSSeveral approaches to improving theexperience of pedestrians crossingstreets are needed to achieve the walkableenvironment that was a unanimousdesire of residents and stakeholders. Themost basic of these design approaches issimply to reduce the distance that mustbe crossed at key locations. In variouslocations, this may mean reducing thenumber of lanes, reducing the width oflanes, removing auxiliary elements (rightturn lanes, shoulders) or reducing cornerturning radii. For example, the intersectionof Plaza Real (Mizner Park) and NESecond Street features a five-lane (widelanes) cross-section of NE Second Street.However, on either end of this importantpedestrian section (west of Federal Highwayand East of Mizner Boulevard), thereis only one traffic lane entering NE SecondStreet. So it is not likely that vehiclesneed these five lanes, and the space couldbe better balanced if the space were redistributed.These sorts of logical trade-offscan and should be found at intersectionsthroughout the City.Priority intersections include: PalmettoPark Road at Plaza Real South,Federal Highway and Mizner Boulevard,NE Second Street at Dixie Highway,Federal Highway and Mizner Boulevard,and Mizner Boulevard at NEThird and Fifth Streets and at SE FirstStreet and Royal Palm Plaza.Dixie HighwayNW Second StreetEast Palmetto Park RoadProposed crosswalk improvements indicated with purple circlesFederal Highway HighwayRoyalPalmPlazaNE Fifth StreetNE Third StreetBefore and after diagrams showing the pedestrian improvements around Mizner Park30Before (left) and after (right) view of Second Street from Mizner Park

Mizner BoulevardBoulevardSIDEWALK IMPROVEMENTSThe pedestrian environment can beimproved through a combination ofpublic improvements and enhanceddesign guidelines for private developmentthat include expanding sidewalkdimensions, improving the placement oflandscape materials, and creating pedestrianopen spaces. Key locations include:Portions of Palmetto Park Road, FederalHighway, NE and NW Second Streetand Camino Real west of Federal Highway.Just as vehicles require particulardesign elements to be in place for safeand comfortable use, pedestrians requirefunctional elements such as adequatespace to move (side-by-side, in oppositedirection, around open doors, etc.) andbuffers from moving traffic (landscapingor parked cars). Palm trees are appropriateclose to the curb to define the streetand create a barrier from moving traffic.Shade trees with foliage beginning 7’-0”above ground level are essential in thisclimate. Both are required.Dixie HighwayNW Second StreetSidewalk improvements on various streetsFederal HighwayNE NE First Avenue AvenueEast Palmetto Park Road12' 8' 6' 8' 6' 6' 5' 5' 6'Type A - Residential Type B - Residential Type D - Residential20' 6'20' 6'10' 6'Type A - Commercial Type B - Commercial Type D- Commercial31

Mizner BoulevardBoulevardMizner BoulevardBoulevardSECTION CFRAMEWORKSBIKEWAY NETWORKThe existing bikeway system is nearlycomplete, but key gaps in the routebetween Downtown and Florida AtlanticUniversity (FAU) should be filled(Glades Road and Fourth /SecondStreets). Other gaps include the routealong the A1A. In addition, the physicalconfiguration in Downtown along NESecond Street should be an integral partof the revised streetscape program. Thediagram indicates the option of a bikeroute along East Boca Raton Road inorder to connect with the future publicopen space on the Wildflower site.Dixie HighwayNW Second StreetNE NE First First Avenue AvenueEast Palmetto Park RoadFederal Highway HighwayADDITIONAL BIKEWAY CONNECTIONSENHANCED BIKEWAY CONNECTIONSPARKING PROGRAMThe goal should be to serve more thanone use with parking facilities, so thatpeople will ‘park once’ when coming toDowntown. The garages at Mizner Parkhave excess capacity much of the time.Three approaches to managed parkingshould be considered:Dixie Highway1Portland-style leasing program, inwhich private and public parkingareas are put into a pool for jointuse on a fee basis.NW Second StreetEast Palmetto Park RoadNE First First Avenue Avenue2City-funded public garage to bebuilt in conjunction with privatedevelopment. In this case, concessionsto developers on parkingrequirements could be tied to fundingsupport for the garages.Federal Highway Highway3Joint funding of garages in specificdevelopments to include publicparking spaces.Proposed shared-use parking32

Mizner BoulevardBoulevardTRANSIT INITIATIVESThe Multimodal Transit Feasibilityand Funding Study will provide waysof coordinating various forms of transitwithin the City and the Region. Anearly action program will be the shuttlesystem between those areas which havebeen identified as activity centers and theTri-Rail Station. Although FAU and theHospital are most likely to support sucha shuttle system first, it will ultimatelybe expanded to serve Downtown.The concept of a Downtown Circulatoris an integral part of the recommendedparking program. If parkinggarages are efficiently connected to aseries of destinations, they are more likelyto be effective. However, the immediatedemand for such a facility may notbe strong enough to support it.Therefore, we suggest combiningthese two transit initiatives by establishinga route for a shuttle to Tri-Railand the other activity centers that makesa loop in the center of Downtown, asindicated on the diagram. The route runsfrom City Hall, along Second Street toMizner Boulevard, south to SE FirstStreet and north along Federal Highwayto Second Street and back to City Hall.This route comes within a five-minutewalk of most parking garages andattractions in the Downtown. As usageincreases, the Downtown Circulatorcould be expanded as its own program.Future transit facilities include acommuter rail station on the FEC tracks.We recommend that this be located nearNW Second Street and that it be coordinatedwith the construction of parkingfacilities currently being considered forthe new library.The concept of a Downtown Circulatorconnecting parking garages andthe major use areas within Downtownshould be encouraged. An early alignmentshould be considered that wouldDixie HighwayNW Second StreetTRI-RAIL SHUTTLE CONNECTIONprovide frequent service on a limitedloop and access within 500 feet of majorgarages and attractions in the core.A later phase could include the moreextensive loop currently being considered.MMTD District DiagramFederal HighwayTri-RailFAUNE NE First Avenue AvenueDowntownEast Palmetto Park RoadDOWNTOWN CIRCULATORElectric bus as downtown connector inNorfolk, VA between parking facilities anddowntown destinations33

SECTION CFRAMEWORKSdesign guidelinesAddison Mizner described one of hisdesign principles as follows: “Florida isflat as a pancake. You must build witha strong skyline to give your buildingcharacter.” This is evident in his drawingsfor Boca Raton and in the towersand fanciful roofscapes of his buildings.He would not be pleased with theresults of the present system of designguidelines. The combination of a rigidheight limit, standardized setbacks, andmarket pressure to maximize developmentwithin the standard envelope createdby the guidelines have resulted in aseries of large, bulky buildings of similarform. They have been described as havinga crew-cut look. The resulting skylinecould also be described as flat as apancake.During the public process, therewere widely varied views about buildingheight. On the one hand, there weresome who felt that no building should begreater than two stories, and others whofelt that buildings needed to be muchtaller to create the sense of a downtown.But most people felt that there wassomething wrong with the uniformityand lack of variety that is leading to aless personal character for Downtown.Therefore, in order to fulfill thevision for Downtown and create thequality of environment represented inthe images of the Master Plan Update,revisions to the current design guidelinesfor Downtown need to be made.We recommend that height bedefined by the number of stories ratherthan a fixed number of feet. The fixeddimension has led to squat floor-to-floorheights and makes it nearly impossibleto have the type of elements that areessential to creating the skyline Miznerwould have wanted. A full revision ofthe guidelines is beyond the scope ofthis Master Plan Update, but we suggesta more three-dimensional approach toresolving this issue. Pattern Books ratherthan Design Guidelines are often helpfulbecause they provide actual patternsrather than abstract formulas.We suggest an approach that beginswith the scale of the street. The presentdesign guidelines have the same setbackand height requirements, irrespectiveof where the site is or what the scaleof the street might be. We recommendthat large-scale, through-streets havemore vertical facades with taller buildingsvisible from the street. This can bean effective means of taming traffic. Ifdrivers feel that they are driving throughan ‘urban room’ they will slow down inways and places where they typically donot if the space feels suburban. Smallscaleintimate streets are often best if thebuildings that are visible from the streetare two to four stories in height. Thepresent guidelines result in a buildingdensity. By revising the setback requirements,we are suggesting that the existingamount of building be redistributed.In some cases, it may be desirable to permitparts of the buildings to be higherthan the present limit in exchange formore public open space and more complexbuilding forms. Each of the fourstreet types described previously shouldhave its own design guideline provisions.50'30' 20'6'14' 10'Diagrams of current design guidelinesThe four cross-sections and axonometricdiagrams on pages 35 and 36illustrate one way in which this could beaccomplished. In each case, the amountof development permitted would bebased on the current guidelines, but thephysical configuration would be modified.The red line in the section drawingrepresents the setback and height limitscalled for by the present guidelines.The plan on page 37 indicates thelocation for each type of street. Thiscreates a framework for determiningthe forms of buildings that will create adifferent character as appropriate for thescale of the space.34

TYPE ALARGE-SCALE STREETS WITHHEAVY THROUGH TRAFFICThe present building setbacks are onlysix feet from the property line. However,the sidewalk design standards call for aminimum 26-foot setback from the curbline. To achieve this, many buildings willneed more than six feet in setback. Furthermore,we suggest that the standardscall for physical improvements to thepublic right-of-way that could includelandscape or structural elements such asthe trellis system illustrated at PalmettoPark Road and Federal Highway. Thesection illustrates a facade rising 6 storiesat the first setback line with higherfloors slightly stepped back above that.This would create an appropriate scaleurban space for wide, heavily traveledstreets, such as Federal Highway andPalmetto Park Road west of FederalHighway.CurrentSetbackLine26' 7'7' 30'Cross-section of the proposed guidelines underType A. Note: dashed red line denotes existingsetback criteriaThree dimensional diagram of a section of thedevelopmentTYPE BLARGE-SCALE STREETS WITHLESS THROUGH TRAFFICThe minimum setback from the curbshould be 26 feet, but the height of thebuilding at that facade line should be amaximum of 5 stories with higher floorsset back as described. The minimumsetback from the curb should also be 26feet, but the height of the building at thefacade line should a minimum of 4 storiestall. Higher floors would be set backfurther than those on Type A streets.CurrentSetbackLine26'15' 15' 30'Cross-section of the proposed guidelines underType BThree dimensional diagram of a section of thedevelopment35

SECTION CFRAMEWORKSTYPE CTHREE-LANE STREETS WITHMIXED-USE ACTIVITYThese should have frequent crosswalksand would have a smallerscale facade,except where special features are neededsuch as the termination of the MiznerPark axis. The setbacks would start atthe top of the third floor and taller elementswould be less visible from thestreet. The minimum setback from thecurb would be 20 feet, with 26 feet preferred.The facade at the first setbackshould be no more than 3 stories, withupper floors stepped back further thanTypes A and B.CurrentSetbackLine20'15' 15' 50'Cross-section of the proposed guidelines underType CThree dimensional diagram of a section ofthe developmentTYPE DTWO-LANE STREETSThese small-scale local streets andpedestrian ways should have deeper setbacks,as illustrated with taller elementsnot visible from the space of the street.CurrentSetbackLine16'30' 30' 50'Cross-section of the proposed guidelines underType DThree dimensional diagram of a section ofthe development36

Plaza Real Real South SouthMizner BoulevardBoulevardNW Boca Boca Raton Raton BoulevardBoulevardNW Fourth StreetNW First AvenuePlaza RealNW Third StreetCrawford BoulevardBoulevardNW Second StreetNE NE First First Avenue AvenueCity HallDixie HighwaySE First StreetEast Palmetto Park RoadEast Royal Palm RoadFederal Highway HighwayMizner BoulevardBoulevardSE Fifth StreetBoca Raton Resortand ClubEast Camino RealA framework diagram showing the streets of Boca Raton based upon typeTYPE A TYPE B TYPE C TYPE D37

SECTION CFRAMEWORKSARTICULATION ANDCHARACTERGeneral massing and height are onlythe first step in determining the bestform and scale for urban buildings. Theaxonometric diagram indicates ways inwhich the general massing should bearticulated.The image illustrates a site at theintersection of a Type A and Type Cstreet. The setbacks are different andthey are resolved in the massing atthe corner. In this case, the corner hasa tower element that is taller than thesetback formula calls for. It is balancedwith a cut in the massing. Together thesechanges create a diverse and well-scaledbuilding.MASSING ELEMENTSThe massing is further articulated withchanges of plane and color which createthe image of an urban collection ofbuildings along a street. The length ofeach element should be no less than 20feet and no more than 60 feet and notwo adjacent elements should be thesame length.MassingArticulationFACADE ARTICULATIONAND COMPOSITIONThe bay lines are indicated as the basisfor establishing a scale and rhythm forarchitectural elements such as windows,balconies, and doors. There should be aclear base, middle, and top. These patternsshould reinforce the massing elementsto create a diverse facade.Facade Composition38

Massing: photo of Boca Raton Resort & Club as precedent for appropriate massingArticulation: precedent photo of sophisticated articulation of the Everglades ClubFacade composition: a well-defined precedent of facade composition at the Boca Raton Resort & Club39

SECTION CFRAMEWORKSADDITIONALREQUIREMENTS ANDINCENTIVESPARKINGIn the most successful Downtowns,parking for new development is rarelyrequired by zoning. Developers willprovide that which is required to satisfytheir market, but the best situations areones in which parking serves many differentuser groups. Therefore, the constructionof public parking garages willbe an important part of this program.There are many options for doing thisincluding subsidies to private developmentsto provide public parking withinthem, payments by developers to theCity to build public parking, or increaseddevelopment rights to amortize the costof such facilities.As a general criteria for all streettypes, garages shall not be exposed onany floor level facing a public street oropen space. In addition, garages must belined with active uses with a minimumdepth of 25 feet.ParkingParking LinerParkingParking LinerPedestrianaDiagrams highlighting how parking can be screened and lined by new development40

PUBLIC SPACEIMPROVEMENTSTo create wide sidewalks, arcades, pergolas,and landscaped areas with shadetrees, it will be necessary to provide suchspace both within the public right-ofwayand on private property. This mayrequire land in addition to that currentlyrequired as open space, but it willcertainly require private investment. Inview of current public budgets, it willbe important to establish public/privatecollaboration to achieve that. Inexchange for significant private investmentin the creation of the public realm,both in the public right-of-way and onprivate property, increases in the amountof development could be granted.PedestrianAmenitiesIncreasedDevelopmentAreaRESIDENTIAL DIVERSITYThe market study indicates the lack ofbalance in Downtown housing. Mostof the housing is second home and topof the market. To succeed, Downtownneeds a 7 day a week, 24-hour populationrather than empty windows.We encourage the development ofthe first few floors above ground-floorretail as small apartments or condominiums.It is most critical to have activewindows close to the ground where theycan enliven the public spaces below. Thislocation is not desirable for the high-endmarket which is based on distant views,but very good for those who want tobe close to the activity of Downtown.This is also the market most likely to useDowntown amenities on a regular basisand provide the animation needed for asustainable Downtown.We recommend that the City considergranting increased developmentrights in order to achieve this.ResidentialLinerIncreasedDevelopmentAreaDiagrams of incentives and examples of development41

quarters

SECTION DQUARTERSquartersSuccessful Downtowns are collections ofa wide variety of places and addresses. Aproblem for most new development isthat it tends to be uniform in characterand scale. In Downtown Boca Raton,the design guidelines have tended toreinforce this pattern. Therefore, theMaster Plan Update calls for a series ofquarters with different character, rangeof uses, and even scale.MIZNER PARKThis garden-like public space, lined witharcaded shops, is an unusual urban spacefor an American city. It is most like thegardens of the Palais Royal in Paris(as illustrated at right). Mizner Park isnearly complete, but needs to be furtherdeveloped at both ends and have betteredges along Federal Highway. Thisquarter should include development onthe west side of Federal Highway. Itsnorthern edge should create a gatewayto Downtown.SANBORN SQUARE QUARTERThis area should be diverse with a mixof old and new, small and large buildings,filled with eclectic uses. The smallscale of public spaces within the quartershould create a contrast with the grandeurof Mizner Park and with largerbuildings on its perimeter.PLAZA REAL SOUTHThis is becoming the Downtown MainStreet, especially with the character ofPlaza Real South with larger buildingsthat still provide pedestrian-scale activitiesat ground level.CITY HALL QUARTERWith the advent of a commuter rail terminal,this area can become the futurecore of Downtown and include largerscalebuildings that combine office, residential,and civic uses.PALMETTO PARK EASTThis area has the potential to becomethe Champs Elysees of Boca Raton,with wide, well-landscaped, garden-likepedestrian walks along the street that arelined with residential, restaurant, hotel,and business uses. It terminates in apublic access to the Intracoastal Waterwayand to the bridge to the beach.CAMINO REAL QUARTERThis southern anchor for Downtownincludes the beautifully landscaped corridoreast of Federal Highway and a mixof less well coordinated streetscapes. It ismore a collection of individual destinationsthan a single quarter.Overall Quarters PlanView of improvement to Plaza Real SouthPalais Royal in Paris44

Mizner ParkCity Hall QuarterSanborn SquareQuarterPalmetto Park EastPlaza Real SouthCamino Real QuarterIllustrative plan with Quarters identifiedCRA Boundary45

SECTION DQUARTERSMIZNER PARKMizner Park is a gathering place andfeatures cultural events and attractions.People visit Mizner Park morning,afternoon, and evening to shop,eat, stroll, socialize, people-watch or beentertained. Some of the existing positiveanchors include amphitheater performances,the art museum, Plaza Real,and the restaurant terraces.Future opportunities for theenhancement of Mizner Park includea book shop (coming soon), additionalchildren’s programs, a performing artsschool, an indoor music hall, and localsouvenir shops.As a Quarter, however, it is not complete.The next phase of cultural facilities,including the completion of theproposed concert hall should be partof the next phase of development. TheQuarter is not sufficiently visible fromthe main approaches into Downtown. Itturns its back on Federal Highway and itlacks an effective connection to PalmettoPark Road. Therefore, future initiativesshould be encouraged on both sides ofFederal Highway to create an attractivefront door. This should include mixedusedevelopment in a scale and characterof architecture that visibly extendsMizner Park. The southern connectionacross NE Second Street to the SanbornQuarter is also critical for its long-termsuccess. Tavener Tower should be reconstructedand placed as an anchor on thesouthern end of Plaza Real.Dixie HighwayMizner Park Quarter illustrative planFederal HighwayPlaza RealNE Second StreetImages showing the character within the Mizner Park Quarter46

Federal HighwayMizner BoulevardPlaza RealSANBORN SQUARE QUARTERThe blocks between NE Second Streetand Palmetto Park Road have long beenthought to hold the key to uniting thevarious parts of Downtown. A seriesof proposals over the years have failedto be realized for a variety of reasons.Those plans conceived the area primarilyas a link and tried to create a grandpublic space. This Quarter, however,has the potential of becoming a uniqueaddress of its own, in contrast with thegrandeur of Mizner Park. It could bean address that is pedestrian, edgy andorganic – a place for entertainment, fun,creative experiences, and nightlife in anenvironment that preserves some existingbuildings harmoniously with newdevelopment.At Sanborn Square, people will beattracted to living and working in acreative environment in the midst ofrestaurants, art galleries, and specialtyshops. This Quarter will be bustlingin the afternoons, evenings, and late atnight.One existing positive anchor is SanbornSquare itself, which is often usedfor weddings and photo shoots. Also,some of the shops at Mizner Plaza arequality commercial concepts that couldbe relocated to this newly developedquarter.Future opportunities to develop andconnect Sanborn as a Quarter includeclusters of small restaurants with outdoorterraces, arts retail shops, live musicvenues, and a wine and culinary school.Sanborn can be a South Florida destinationaddress for design, with creativePalmetto Park RoadIllustrative Plan of one option for the Sanborn Square Quarteroffices and designers living and workingthere. There can also be a boutiquehotel. Bollards can transform the streetsat certain times to become pedestrianonly,providing the opportunity for streetfestivals and special events.Whether it is developed as a single,large-scale development or an incrementalone consisting of smaller individualefforts, the Quarter should include awide range of building scales and types.NE Second StreetAn example of the pedestrian environment47

SECTION DQUARTERSFederal HighwayPLAZA REAL SOUTHMuch of the most recently completedlarge-scale development and that whichis already approved for development isin this area. The result is a large-scale,Downtown-like area with a promising‘restaurant row’ at its core. It is connectedto the Royal Palm retail area which isalso projected for similar redevelopment.The character of this development, governedby the current design guidelinesis becoming monolithic and uniform.Therefore, more diversity is needed inthe next phases, and key connections toPalmetto Park Road need to be reinforced.The suggested improvementsto Federal Highway would result in abetter relationship to the areas west ofFederal Highway so that the entire areacan be a coherent and diverse district.The tallest buildings should be closestto Federal Highway and Palmetto ParkRoad to reinforce the center of Downtown.Structures to the south and eastshould decrease in scale.Plaza Real South is the physical centerof Downtown and, as such, should bea comfortable vehicular and pedestrianurban streetscape that is accessible on a24-hour basis. It should also be a mixeduseplace for working and shopping.Palmetto Park RoadDixie HighwayPlaza Real South Quarter illustrative planImages showing Plaza Real South character48

CITY HALL QUARTERThe key anchors for this civic heart ofDowntown are separated from the mostactive areas by the double barriers of therailroad tracks and roads. The proposedchanges to the roads and improvedpedestrian crossings are intended to providea better linkage between the twosides of these barriers. The boundariesof the City Hall Quarter straddle thesebarriers. Buildings of large scale alongthe tracks and lining the portions ofPalmetto Park Road, Federal Highway,and NW Second Street can be used totame the scale of the roads and provide astrong visual center for the Downtown.The scale should decrease to the west,especially at the edge of the neighborhoodsand around a potential new civicsquare in the center of the City HallComplex. The addition of a new library,parking, mixed-use buildings and additionalpublic buildings can create a trulyunique part of Downtown. A largeamount of the land is publicly owned,which should be a way of introducing awider range of housing types and pricesto encourage a more diverse Downtownpopulation.The key to the future of this areais the proposed commuter rail stationalong the FEC tracks and a circulatorbus system connecting it with the restof Downtown.The City Hall Quarter wouldbecome a community place that is welcoming,informative, inclusionary andcaring. It is the address where peoplecan meet and connect with other communitymembers through a variety ofrecreational activities, meetings, andfun social experiences throughout theday and evening.NW Boca Raton RoadPalmetto Park RoadCity Hall Quarter illustrative planAn example of the pedestrian environmentDixie HighwayFederal Highway49

SECTION DQUARTERSPALMETTO PARK EASTPalmetto Park East is central Downtown’sconnector to the IntracoastalWaterway and the beach. As such, itmust be a calming, comfortable, andcongenial experience for both pedestrians,cyclists, and drivers.It should be a welcoming and safeplace for both vehicles and pedestrians,and encourage people to slow down. Itis a mixed-use address that is lively duringthe day and evening, where peoplelive, work, recreate, and enjoy traditionalneighborhood conveniences and restaurants.The existing anchors which supportthese activities include new residentialcondominiums, offices, restaurants,and Silver Palm Park. The future of theWildflower property, on the north sideof the street, should include public accessto the waterfront, a connection under thebridge, and active uses along the waterfront.This should be the case whetherthe balance of the property is developedprivately or if it is all a public park.In the future, this address can beenhanced with wider sidewalks, continuousrestaurant terraces, shaded areas, aswell as benches and seating alternatives.Additional recreational trail systemscan be developed nearby on NE SecondStreet to connect walkers, joggers, andcyclists to the beach.Images depicting the pedestrian character in this quarterPalmetto Park RoadAn illustrative plan showing the new Palmetto Park East Quarter50

initiatives

SECTION EINITIATIVESinitiativesIn order to implement this Vision, theMaster Plan Update includes a series ofproposed Initiatives. Preliminary draftsof these were presented in the course ofthe public process and received broadbasedendorsement.Each initiative combines both publicimprovements and private development.Their success depends on creating theappropriate public realm and on usingthe design guideline approach describedin the last section of this report.Each Initiative is located within oneof the Quarters. The initiatives are:West Palmetto Park Road &NW Second Street with theFederal/City Hall QuarterThe barrier effect of Federal Highwaymust be overcome in order to begin theprocess of integrating the City HallQuarter into Downtown. The majorcatalyst will be a new library, publicparking for Downtown, and the futurecommuter rail station.East Palmetto Park RoadConsiderable development activity isoccuring along this link to the waterfront.The character of the pedestrianrealm needs to be improved in order toprovide an active and lively urban place.There are options for the ways in whichthis can be accomplished.Central Palmetto Park Roadand Plaza Real South QuarterThe most urgent initiative is to provideadequate pedestrian crossing in the centerof Palmetto Park Road between FederalHighway and Mizner Boulevard. Byovercoming the barrier that blocks midblockpedestrian movement, this link,combined with additional developmentin Plaza Real South, would extend thepedestrian zone of Downtown.NE Second Street andthe Sanborn Square QuarterAnother urgent priority is connectingthe southern end of Mizner Park to theSanborn Square Quarter. The redesignof NE Second Street will make it morecomfortable to cross, but it will not befully successful without the redevelopmentof at least this portion of the SanbornSquare Quarter to permit pedestrianlinkages to Boca Raton Road andto Palmetto Park Road.Detail views of the four initiatives52

West PalmettoPark Road andCity HallSanbornSquareEast PalmettoPark RoadCentral PalmettoPark RoadDiagram of initiatives within quarters53

SECTION EINITIATIVESINITIATIVE 1:CENTRAL PALMETTO PARKROAD AND PLAZA REAL SOUTHThe section of Palmetto Park Roadbetween Federal Highway and MiznerBoulevard is the heart of Downtown.Its current configuration is designed tomove traffic through it rather than createa sense of place. It is currently notpossible to cross the street as a pedestrianin the central section. Therefore,the first initiative should be to revise thestreetscapes in this area to provide a comfortablepedestrian crossing in the centerof Palmetto Park Road in alignmentwith Plaza Real South. As illustrated inthe before and after perspectives opposite,the existing raised median, whichis currently an obstacle for pedestrians,must be removed and a wide, graciouspedestrian crossing should be installedthat includes a pedestrian crossinglight. The streetscape should includepalm trees and decorative street lightsperpendicular to the street to emphasizethe crosswalk. Ideally, future developmenton the block to the North wouldinclude a vehicular as well as pedestrianconnection to this point.This should be done in collaborationwith the owners of the Merrill LynchBuilding to create a more pedestrianfriendlyand active ground floor withrestaurant and retail uses facing PlazaReal South (at a minimum) to the portionof Palmetto Park Road frontageclosest to the proposed crossing.On the north side of the street, thelow storefront buildings include a smallarcade which could provide the opportunityfor north/south connection.The next phase of development currentlyunder consideration is a hotel andoffice complex south of Palmetto ParkRoad. The design of this building asillustrated in the perspective drawingshould reinforce the pedestrian characterPalmetto Park RoadFederal HighwayFederal HighwayFramework diagram of the initiativePalmetto Park RoadDetail illustrative plan of the initiativePlaza Real SouthPlaza Real SouthSE First StreetSE First StreetMizner BoulevardMizner Boulevard54

Perspective of the improved pedestrian crossing at Palmetto Park Road and Plaza Real Southof the space. The streetscape should beimproved as part of the program. Basedon the assumption that SE First Avenuehas been vacated in the first block southof Palmetto Park Road, the streetscapeplan illustrates a double block betweenPlaza Real South and Federal Highway.In this way, the blocks would be sufficientlylarge to make sure parking iswithin the blocks and not visible. It alsomakes it possible to provide additionalpublic parking within blocks. The loss ofthe street should be compensated forwith an increase in the amount of publicopen space which we have illustrated onthe design plan.Through this combination ofstreetscape improvements and newdevelopment, Palmetto Park Road willbegin to become the center of Downtown.Photo of existing conditions: Palmetto Park Road and First AvenueBefore and after conditions of the pedestrian environment along Palmetto Park Road55

SECTION EINITIATIVESINITIATIVE 2: NORTHEASTSECOND STREET ANDSANBORN SQUAREDISTRICTLong considered to be the missing linkin Downtown’s redevelopment, the areabetween NE Second Street and PalmettoPark Road has been planned, andre-planned several times. There are currentlyseveral proposals being advocatedby one group or another, including a proposalto consolidate all of the propertiesinto one ownership for redevelopment.For any of these plans, the first stepshould be to provide a framework ofpedestrian circulation and streets forthe area. The diagram illustrates criticallinkages to adjacent areas, as well asexisting buildings and open space forwhich interest exists to preserve them.The creation of the pedestrian crosswalkson NW Second Street and PalmettoPark Road is described on page30. With the elimination of SW FirstAvenue south of Palmetto Park Road,it is essential to have a north/south linkthat connects with the alignment ofboth Plaza Real South and Plaza RealNorth. This could be a pedestrianscaledstreet with appropriate sidewalksor unified decorative pavement that canaccommodate both pedestrians and cars.Its character should be small-scale andinformal. It could be built incrementally.There are many possible configurations,but the solution should clearly connectto both the north and the south.East /west linkages to SanbornSquare also need to be created eitheralong the alignment of Boca RatonRoad or along the north and south edgesof Sanborn Square.NE Second StreetPalmetto Park RoadFederal HighwayFederal HighwayNE First AvenueNE First AvenueFramework alternative developed during the charretteNE Second StreetPalmetto Park RoadDetail illustrative plan alternative developed during the charretteMizner BoulevardMizner Boulevard56

Perspective of new crossing and development at Plaza Real North and NE Second StreetThe plan drawing indicates onepossible configuration for the area,which was developed in the charrette.It includes an informal street runningnorth/south through the area and acollection of buildings of various scalesand types, with the preservation of someexisting buildings.The perspective drawing illustratesthe entrance to this informal street. It isflanked by substantial buildings includinga large-scale one that terminates thevista from Mizner Park. In the distance,the Cramer House is visible as the terminationof the first segment of thestreet.The sequence of plans illustrates theway in which individual properties couldbe developed over time to achieve thisplan. The required open space for eachproperty is aligned with that on adjacentproperties to provide a througheasement. There should be a creativeapproach to parking and the flexibilitysuggested in the design guidelines toachieve this character.Existing conditions and phased approach usingthe location of required public open space onindividual parcels to create a small-scale street57

SECTION EINITIATIVESALTERNATIVE PROPOSALSBoca Raton Historical Society Charrette:Several designs were developed in apublic charrette. All of the alternativespreserved some of the existing buildings.One of these alternatives is illustratedhere. The first created a north /southpedestrian connection, preserved somebuildings, and proposed large-scalebuildings on the two eastern corners ofthe site.Sanborn Village Proposal: A currentproposal calls for the clearance of allbuildings in the area and proposes amixed-use complex with low-scaledretail buildings along the axis of PlazaReal and larger-scale buildings on thefour corners. The retail buildings inthe center create a series of pedestrianpromenades which connect the north /south axis and provide vistas to the westto Sanborn Square and the historicTown Hall. One level of public parkingis provided under the entire site. This isintended to serve all of Downtown andis located within five minutes of mostDowntown activities. Parking for theoffice and residential buildings will beprovided in above-ground garages.The concept of lower-scale buildingsin the center and the diversity ofarchitecture is consistent with the designguidelines, as is the pedestrian system.However, other aspects should beconsidered in the design if the projectmoves forward. To conform to the designguidelines, the tallest buildings shouldbe the ones closest to Federal Highway.There should be some form of vehicularaccess in the public spaces. Some ofthe existing buildings should be eitherpreserved or reconstructed to add to therichness of the small-scale environmentcreated in the center of the site.Historical Society (mid-level development)Illustrative plan for Crocker proposal in the spine areaImagery from the Crocker proposal for the spine area58

Other Alternatives: There are many possibilitiesfor this area. Another possiblealternative is illustrated on this page.KEY ELEMENTSThe following key elements should bepart of any plan for the area:» A pedestrian connection betweenNE Second Street and Boca RatonRoad and between Boca RatonRoad and Palmetto Park Road. Wealso recommend a vehicular connectionbe developed. The scaleand size of this connection could beeither a collection of Palm BeachMizner Vias or a small-scale street.To be consistent with the idea ofcreating a village atmosphere, wesuggest that larger-scale spaces notbe considered.» Sanborn Square should be a focusof the design as should the historicTown Hall. Buildings could belargest in scale along Palmetto ParkRoad close to Federal Highway,somewhat smaller in scale alongSecond Street and lower in scalealong Mizner Boulevard. Thesmallest-scale buildings should bein the center. It is desirable to havepublic circulation, either vehicularor pedestrian along the northand south sides of the Square. Atpresent, only the sides or backs ofbuildings face the Square. Buildingsshould have active facadeswith public uses opening onto theSquare. First Avenue should eitherremain, or, if it no longer functionsas a street, should have active usesfacing the Square.Small grid of streets»»Some of the historic buildings inthe center of the area should eitherbe preserved in place if possible, ormoved to another location withinthe Quarter, or have their facadesreconstructed as part of the development.There should be a full range of usesand a wide range of type and scaleof buildings.59

SECTION EINITIATIVESINITIATIVE 3:CITY HALL QUARTERThe City Hall Quarter is not currentlyperceived to be an integral partof Downtown. The combined barriersof the FEC Railroad line, Dixie Highway,Federal Highway, and the types ofbuildings and uses along the tracks makeit difficult to perceive this area as part ofDowntown.However, the area has great potentialas an important quarter. Currentproposals include a new library andDowntown parking facility, as illustratedin the Phase 1 diagram. The plan suggestsrelocating NW First Avenue to thewest to provide a landscaped buffer andpotential parking area along the FECTracks.The anticipated commuter rail stationwill be located in this area. It shouldbe conceived as an inter-modal facilityand be located south of the new librarysite along the relocated street. This areawill then be an ideal location for intenseTransit-Oriented Development. Furthermore,there is a large amount ofCity-owned land, which means thatdevelopment can be accomplished in amore cost-effective way than elsewherein Downtown. This could be an opportunityto provide a wide range of moreaffordable housing since land cost is oneof the obstacles to such development.The long-term goal is to have afull range of uses in the area includingmixed-income residential, office, civic,retail, and recreational uses. The scaleof the tracks and Dixie Highway couldbe improved with large-scale buildings.Investment in the area could bringmuch-needed street improvements.There are two key initiatives to beginthis process: The first is to improvepedestrian crossings at Federal andboth Second Street and Palmetto ParkRoad. The second is the new library andPhase 1 Phase 2NW Boca Raton RoadPalmetto Park RoadDixie HighwayIllustrative plan showing the phasing and final plans of the City Hall QuarterFederal Highway60

Perspective of the improved pedestrian environment along central Palmetto Park Road at Federal Highwaygarage. Longer-range initiatives includemixed-use buildings on several blocks. Ifthe Police Department is relocated to amore central location in the City, its sitecould be an ideal one for office use.The City Hall complex uses landinefficiently and should be redevelopedat some point in the future. The mostsignificant landmarks in the area arethe banyan trees, now sadly surroundedby parked cars. They could be part ofa significant public open space aroundwhich civic and mixed-use buildingswould provide a dignified focus for theCity Hall Quarter.Photo of existing conditions at Federal Highway and Palmetto Park Road61

SECTION EINITIATIVESINITIATIVE 4: EASTPALMETTO PARK ROADEast Palmetto Park Road is currentlyplanned to be developed with Downtown-scalebuildings. The goal is tocreate a lively mixed-use street leadingto the Intracoastal Waterway and thebeach. The properties are constrainedby the depth of the blocks and are notconnected to the streets to the north.Although this limits the capacity of thearea to become a ‘Main Street,’ it is stillpossible to develop a combination ofhotel, office, and residential buildingswith some ground-floor retail, especiallyrestaurant, café, and destination uses.The design of the pedestrian experienceshould include wide planting beds witha meandering sidewalk suggesting agrand approach to the waterfront.The public realm can be developed inone of two ways: The preferred solutionis to reconfigure Palmetto Park Road asa three-lane road with parking on bothsides. The other is to keep a four-lanesection but eliminate the parking. Ineither case, a much wider sidewalk areais created. We further recommend thatdevelopment on each side include frontyard space to provide additional landscapematerial.This street leads to Silver Palm Park,which is also in need of improvement.The plan indicates a more compactparking area to provide space for activeuses including a café or pavilion on thewater. The Wildflower property shouldbe included in this program, either as apublic park or as a development site withpublic access to the waterfront. In eithercase, it is important to provide pedestrianaccess along the water between thesetwo park areas.East Palmetto Park RoadIllustrative master plan of East Palmetto Park RoadExisting conditionsOption showing parks on both parcelsThree- and four-lane options on an improved East Palmetto Park Road62

A new vision for East Palmetto Park RoadPhotograph of the existing pedestrian environment and streetscape63

implementation

SECTION FIMPLEMENTATIONimplementationINITIATIVESThe Master Plan Update is organized tofacilitate implementation.The two types of elements, Frameworksand Development Quarters, eachhave their own method of being implemented.The Frameworks are mostly inthe public realm but require a collaborationwith private property owners anddevelopers. The Development projectsare on private property, but must havepublic endorsement to be built.The plan also identifies specific initiatives,all of which include both publicimprovements and private development.This calls for an effective collaborationamong public agencies and private owners.Each initiative requires both a holistic,interdisciplinary approach as well asstrong leadership. This is generally bestaccomplished with either a Task Forceor a Steering Committee to review andsupport the initiatives.In our experience, the most effectiveorganizational structure for implementingsuch a program is one in which thereis a group of citizens and public officialscharged with the task. The most commonform in other parts of the U.S. is tohave a Redevelopment Authority Boardappointed by Council but not necessarilyconsisting of Council members.This group then sees the redevelopmenteffort as its primary task rather than oneof many responsibilities. Another effectiveapproach is to establish a Task Forceor Steering Committee. In that alternative,we recommend that the DowntownAdvisory Committee (which wasrecently created by the CRA Board)become the Downtown Steering Committeeresponsible for the implementationof the plan. Since this Committeeserves at the pleasure of the CRA Board,it would be led by the Chair of the CRAand report to the Board on a regularbasis.Equally important is the organizationof City staff for the implementationof the program.We therefore recommend that eachinitiative have a Task Force consisting ofkey City staff and the key private sectorindividuals involved in implementingthe initiative. The overall coordinationof the effort will require a senior staffperson within City Hall with adequatesupport staff.This is critical in order to maintainthe interdisciplinary nature of the process.Most efforts are currently beingaccomplished by agencies or departmentswith a single focus. For example,the improvements to the public realminclude crosswalks, revised cartwaydesigns, and streetscapes. The effortwould normally be led by the MunicipalServices Department. But the focusof such a department is generally onvehicular traffic movement, not onthe other aspects of street design. Thedesign work should be done, not by anengineering firm focusing primarily onthe mechanics of the design, but by aninterdisciplinary design team that willfind creative solutions for the whole.It is the role of the Steering Committee,the CRA Board, and the InitiativeTask Forces to make sure this isaccomplished.The plan also identifies the projectswhich are most important to move forwardwith quickly. These include:1 Central Palmetto Park Roadincluding crosswalk and streetimprovements2 New development south of PalmettoPark Road3 NE Second Street improvementswith crosswalk extending to MiznerPark, combined with partial orfull redevelopment of the SanbornSquare Quarter4 City Hall Quarter developmentincluding the new library and parkingfacility as well as crosswalks atFederal Highway and both SecondStreet and Palmetto Park Road5 East Palmetto Park Road improvementsand Silver Palm Park combinedwith development on theWildflower property6 Development a comprehensiveparking program:Step 1 Set up a governingmechanismStep 2 Conduct a parking needsstudy to evaluate the gap betweenspaces needed and available supplyStep 3 Organize property ownersand city agencies to develop a coordinatedsystem66

TRANSPORTATIONA series of approaches and initiativeswill be required to implement the transportationrecommendations. These fallinto three broad categories: Policy, Regulation,and Projects.POLICYOn streets that are not under the directcontrol of the City (most notably stateroutes such as Federal Highway), theCity will have to articulate its preferredpolicies (for example, to lower vehiclespeeds, improve pedestrian environment,etc.) and begin a campaign of lobbyingand negotiation with agency partners.This may involve the identificationof funding that can be used to implementprojects, then working throughDOT during the project implementationprocess. It may mean implementingchanges as part of ongoing maintenanceor upgrading programs. In any case, theeffort will have to be diligent and longterm.REGULATIONMany of the proposed transportationimprovements can happen as part ofredevelopment in partnership with theprivate sector. For this to occur, however,the proper codes and ordinances must bein place to communicate needs to individualproperty owners.this master planning effort. The issue offunding, however, will require additionalwork. Funds may be available fromFederal sources in the form of annualtransportation allocations. There maybe opportunities to apply for grants orenhancement funding. There may alsobe opportunities to explore options suchas a business improvement district, taxincrement financing, or revenue bondsto create a greater pool of local funds.REGULATORY MECHANISMSTo implement the concepts presented inthis Master Plan Update, the City willneed to make appropriate modificationsto various instruments that guide developmentand planning. These include:the City’s Comprehensive Plan includingthe Multi-Modal TransportationDistrict Regulations, Amended DowntownPlan, and the Amended DowntownDevelopment Order. In addition,the City should participate in FDOT’sLiveable Communities Program.PROJECTSOn the streets the City does control, aprocess of project identification, prioritization,and funding must take place. Thefirst two can largely be extrapolated from67