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JEFFERSON CITY BEAUTIFICATION PLAN
Prepared for : COMMISS ION ON ENVIRONMENTAL QUALITY
Prepared by : SKIDMORE, OWINGS & MERRILL
CHICAGO , ILLINOIS APRIL 1976
TABLE OF CONTENTS
Introduction
Summary of Issues
PART 1: REGIONAL ANALYSIS
Methodology
Regional Setting
Physiographic Regions
Study Area s
Component Areas (Physiographic)
Special Study Areas
PART II : CENTRAL BUSINESS DISTRICT
Structure of the Central Business District
CBD --Problem Generators
Development Oppo rtun ities
Preservation
High Street M all
Street Tree Program
PART Ill : IMPLEMENTATION
Implementation
Summary
PART IV: TECHNICAL APPENDIX
Page
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ACKNOWLEDGEMENTS
This r eport has been prepared for, and with the
cooperation of, the Commission on Environmental Quality :
M rs . Betty Jo Delong, Chairman
Mr. Sam B. Cook , Vice-Chairman and Civic Beautification
Chairman
Mrs. Betty Gibson, Secretary-Treasurer
Mr. A .B. "Bud" Jackson, Jr.
Mr. Mark Sullivan
Mr. Hadley K. Irwin
Dr. Henry Guhleman
Miss Carolyn McDowell
Dr. Th omas Bran-t
The concept of a Beautification Plan was initiated in 1972
by the Commission on Environmental Quality under the
leadersh ip of Mr. Sam B. Cook, the Commission's first
Chairman .
Special tribute is also extended to the following persons
for their contributions t o the study effort :
Mayor Robert Hyder and Members of the City Council
Mr. Robert Simonds, Landscape Architect and Special
Consultant to the Commission
Former Mayor John Christy
Mr. Ted Herron, Executive Director, and Board Members
of the Housing Authority
Mr. Ed Rackers, Director of Public Works
Mr. Robert Schulte , Chairman, and Members of the
Parking Authority
Mr. Jim Thomas, Chairman , and Members of Downtown
Business Association
Mr. Tim Frevert, L.A. Department of Conservation
Mr. Tom Benton, City Planning
Mrs. Carolyn Becker
Mr. Joseph Majersky
Mr. Israel Collier
Mr. Fred Seaman
Mr. William Tweed fe, Jr.
Mr. Ralph W is dom
Mr. Robert Hyder
Mr. William Natsch
INTRODUCTION
Beautification has always been a troublesome word in the
designers vocabulary primarily because of the largely
subjective and abstract nature of the concept of beauty .
Even though architects, landscape architects, p lanners and
others within the design professions rarely agree as to
what constitutes beauty, most people use the term to
ex press their feelings about their reaction to visual stimuli .
The various physical elements of the American cityscape
are frequently ignored or taken for granted be c ause of
the similarities in long term urban growth patterns and the
resultant lack of clear differences in land use management
practices from city to city. Yet these elements and their
interrelationships have the power to stimulate our emotions,
inspiring feelings of approval when a set of circumstances
elevates our visual experience above the ordinary and
provoking disapproval and denial when conditions fall
below our ex pectations and offend our sensitivities .
Sin ce the birth and growth of most American cities, even
those that may have had specific plans that guided earlier
stages of development, has been traditionally linked to
economi c rationales, the form of most c1t1es has been
largely determined by ec onomic dictates . A few cities,
however, such as some seats of government and university
communities, whose econom i cs are based on wealth
created elsewhere, were not c ompelled to fulfill ordinary
ec onomic imperatives as they grew. This enabled many to
devote greater time and effort to the plann i ng pro c ess,
and create a concern for form as well as function.
Th e d eve lo pm ent o f Jefferson Cit y has been guided by
both ec onomi c considerati o ns and by public poli c y
de c ision s. The establishment of the state pen itentiary in
1833 and th e construction of the state house in 1842
w e r e imp o rtant public poli c y d ec i s ion s designed to
streng th e n the ci ty's economic ba se --theretofore tied to
fl o ur mills, tanneries, and di st i lleries along the Missouri
Ri ve r --an d to c onsolidate its de signated role as the new
st ate ca pital. Over the years, as state government grew
a nd co n ve nient links to larg e c iti es were established ,
J e ff e r s on City, through publi c a nd private efforts,
deve lop ed into a pleasant town of lovely tree-lined streets
a nd impress ive public buildings .
But th e ever increasing d e mand s of a growing state
burea uc racy and the later advent of universal automobile
owne rship resulted in the ex pansion of spa ce given over
t o auto traffi c, c ontributed t o the breakdown of the v isual
e nv ir on m e nt, and provoked c onfli c ting land use pra c ti ce s;
and th e physic al quality o f J effEl'rson City , o v er tim e ,
beg a n t o deteri o rate .
It is th e intent of this re port to identify areas within
J eff erso n Cit y that can be vi sually improved --elevated
fr o m th e o rdinary --and to sugg es t ac tions that might be
und e rt a ken in o rd e r to furth er the goal of recreating an
a tm os ph e re suitable to the c ity's st atewide prominen ce and
sym b o l ic imp o rtan c e .
SUMMAR Y O F I SSUES
As the development of the Jefferson City Beautification
Study progressed, several key issues regarding the quality
of the c ity's visua l environment began to emerge. The
following were identified as major problems areas which
were seen to occur repeatedly throughout the city:
1. Lack of landscaping along city streets;
2. Lack of landscaping of off-street parking lots:
3. Overhead telephone and electrical lines;
4. Proliferation of unsightly signage; and
5 . Lack of concern that new deve lopment--land use mix
site layout, architectural design of buildings--be of
high quality.
In some instances, these problems exist because our
values and standards for our visual environment have
changed over time. In other instances, they are beyond
the jurisdiction of the city government. In some cases,
however, they are a result of weaknesses in the City's
zoning ordinance or a failure on the part of the City to
exercise its authority to ensure compliance with the zoning
ordinance, even on projects the City itself is developing.
STREET LANDSCAPING
The minimal levels of tree planting along city streets in
Jefferson City and the almost total lack of street
landscaping in the downtown has a highly detrimental
effect on the urban environment of Jefferson City. The
implementation o f the comprehensive tree planting program
described in detail subsequently in this report would serve
to beautify the streetscape, improve the physical
environment and bring identity to various areas within the
ci ty . Imp lementation of the program would also provide a
stron g incentive for existing property owners to improve
their properties .
2
LANDSCAPING OF PARKING LOTS
A prime example of the City itself fai ling to comply with
the Zoning Ordinance are the city-owned parking lots
which were developed over the past ten years under the
Urban Renewal program. These parking lots are in
important and quite prominent locations in the Central
Business District. While the provision of adequate parking
was essential to the economic vitality of the downtown,
the lack of effective quality control and the absence of
even minimal landscaping of these parking lots has
resulted in a further deterioration of the visual environment
of the city and has in point of fact increased the blight
of the automobile.
Even though requirements regarding landscaping of parking
lots (Zoning Ordinance Section 7.D.7l are at best minimal,
it is apparent throughout the city that little or no effort
ha s been made to enforce them . In addition to strict
en forcem e nt of the ordinance, we re co mmend the
following changes:
1. The mtntmum landscape requirements shou ld provide
for landscaping within the interior of parking lots and
along any street frontages to provide screening of
parking lot s from streets.
2. Parking lot s should not extend beyond what would be
the minimal front yard under the applicable zoning
code provision (Zoning Ordinance Section 6).
This would ensure that parking lots would be set
back from the public right-of-way, thereby providing
ample front yard area for appropriate landscape
screening along street frontages .
3. Interior landscaping should be required for all parking
lots which are the sole use of the building lot and
for accessory parking a reas with ten or more spaces
or more than one row of parking spaces.
When required, there should be a minimum
requirement of one 4% to 5 inch shade tree for
every three cars. Interior planting should be
distributed uniformly throughout the parking area . In
addition, one 4 Y2 to 5 inch shade tree should be
required for every sixty linear feet of rear yard .
The 4 Y2 to 5 inch tree is recommended instead of a
3 inch because the latter has a minimal survival rate .
The larger tree will also have a spread of 25 to 30
feet, thereby providing good shade and a strong visual
appearance. Evergreen trees could be used if a
minimum spread of 6 feet or a minimum height of 12
feet is specified .
4 . Frontage landscaping should be required for all parking
areas irregardless of their size and should consist of
ornamenta l fences or walls in combination with plant
materials . Minimum tree planting requirements should
be one 4Y2 to 5 inch shade tree for every thirty
feet of frontage. Overall requirements should ensure
that the sc reening achieve 80% opacity when viewed
horizontally in the space of one and five feet above
grade at the screen line, at the time of installation; a
minim-Um of 50% opacity should be sustained
throughout all seasons of the year .
5. In addition to the above bas ic requi rements, no part
of the landscaping requirements, interior or frontage,
can be met by planting within public rights-of-way.
6. A building permit should be required for all parking
lot s, irregardless of their size; landscaping requirements
shou ld be applicable to all park ing areas, whether
privately or pub licly owned .
The appendix deals in more detail with landscape
treatment for parking lots and should be used as a guide
for developing specific standards for the selection and use
of plant materials .
It is imperative not only that requirements for the
landscaping of parking lots be significantly strengthened
and then stringently enforced but that the major lots
owned by governmental institutions--the city, the state, the
school board, and the housing authority--that have not
been complying with the letter or even the spirit of the
ordinance be brought up to the above recommended
standards. It is essentially impossible to legislate that
existing privately owned parking lots meet these more
stringent requirements but they should at least comply
with ex isting provisions of the Zoning Ordinance.
If this emphasis on landscaping seems excessive, one need
only look at photographs of Jefferson City i n the State
Ar c hiv es that date from the 1920's and 1930's with
gracious, tree-lined streets to realize the positive visual
impact that landscaping can have on the city.
3
OVERHEAD TELEPHONE AND ELECTRICAL WIRES
Through the course of working in Jefferson City, the
subject o f telephone and electrical power lines, poles and
transformers and their detrimental effect on the urban
environment also emerged as a key issue. It is unfortunate
that this practice has been allowed to con tinue as long as
it has, particularly in newly developed areas of the city
such as the residentia l subdivisions . We canno t recommend
strongly enough that th ese overhead utilities be
systematica lly removed and placed underground . The utility
companies should required to place aU new installations
underground and to develop a plan in the immediate
future for relocating wires along arterial streets. Relo ca ting
wires on local streets and alleys would be afforded a
lower order of priority . If such a plan exists, then it
should be made public and evaluated by the Environmental
Quality Commission
SIGNAGE
Outdoor advert i sing signs, in particular billboards and
rooftop signs , have an extremely blighting effect on the
v isua l quality of Jefferson City. This is a particularly
difficult issue to deal with since a special effort has
already been made to deal with the problem when the
provisions of the Zoning Ordiance regarding billboards and
signs were amended in 1971 . It is apparent, however, that
the past five years have not brought any solution. Our
recommendations include :
1. A careful review shou ld be made of permissible sizes
for signs for various types of buildings and uses .
4
It is our contention that permissible sign areas should
be substantia lly reduced and, in all cases, they should
be based on the area of the face of the building and
not on lot size. Th is latter type of provision would
address the problem of large signs erected on lots
with structures with a small building area, such as
filling stations.
2. The zoning ordinance should stipulate that in the
future it will be illegal to erect the following type of
signs :
Billboards;
Signs painted directly on the walls of buildings;
Signs which are not applicable to the property or
building upon which signs are located; and
Signs erected on the roofs of buildings
To ensure that such existing signs are phased out
over time, no alteration, reconstruction or relocation of
such signs should be permitted . In addition, any sign
going unused for a period of thirty days or more
should be removed; and no building permit should be
issued for the alterat ion or enlargement of existing or
construct ion of additional facilities on a lot where
such signs are lo cated until such signs are removed.
It is strongly recommended that the above changes to the
Zoning Ordinance regarding signage be implemented as
soon as is feasible. While little can be done in the way
of legislating for the removal of existing unsightly signs,
the City can take strong measures to ensure that in the
future such signs are not erected.
QUALITY OF NEW DEVELOPMENT
There is an apparent lack of concern as to whether or
not new development--its land use mix, site layout ,
architectural design of buildings--is of high quality, as long
as it would potentially bring new business to Jefferson
City . There are certain areas over which . the City can
have no control, for example, it is impossible to legislate
that new buildings constr ucted be of quality architectural
design. There are, however, a number of ways in which
the City can act to create an environment which would
encourage quality development .
The primary means would be to enforce the existing
zon ing ordinance. In the past there has been a tendency
on the part of the City Council to waive certain
provisions of the ordinance, particularly those regarding
setbacks, yards, maximum floor area ratios, open space
and to downgrade the zoning to allow "spot" zoning to
occur, in particular large-scale commercial developments in
attractive residential areas, in order to bring new
development to Jefferson City and thereby ensure
cont inuing economic growth. While new development has
been a positive force within the ci ty and has brought
emp loyment for its residents and increased tax revenues,
this concern for quick growth has not been beneficial over
the long-term for the visual quality of the City. The
enforcement of the exist ing zoning ordinance would be
one definite step towards ensuring quality development.
Regarding specif ic provisions of the zoning ordinance, it is
recommended that the following changes be made:
All new development exceeding a designated ac reage ,
building area and/or height should be required to
apply for establishment of a Special Development
District (Zoning Ordinance Section 4 .A.12). In addition,
the Special Development District provisions shou ld
stip ulate required lev els of open space for various
uses .
Such changes would serve to ensu re that all new
large scale development, in particular large commercial
developments in the downtown and residential
subdiv is ions, would be carefully planned and would
include ample open space and landscaping .
If an objective is to encourage private developers to
construct buildings of quality archite ctu ral design, the city
and state governments must fir st set the example. In
recent times, governmental agencies have relied too heavily
upon the use of industrialized, prefabricated building
materials . A prime example of poor architectural design is
the recently constructed State Archive Building, a massive,
windowless structure lacking any sensitivity to its
env ir onment and its prominent location adjacent to the
main western entry to the city .
To provide a further impetus for private developers to
construct quality buildings in the downtown, the city
shou ld immediately implement the tree planting program .
Appropriate landscaping of the downtown streets, part-
icularly those in the Capitol West Development area,
would do much to improve the existing visual environment
and create a setting inducive to quality development. It
would also serve as an in centive for existing property
owners to improve their buildings .
In c on c lusion, if the above described problem areas can
be successfully resolved, their impact upon the quality of
the visual environment will be substant ial. And, in turn,
sign ifi cant improvement to the aesthet ic appearance of
Jefferson City will be highly conducive to attracting new
economically viable development.
5
PART 1: REGIONAL ANALYSIS
METHODOLOGY
REGIONAL SETTING
PHYSIOGRAPHIC REGIONS
STUDY AREAS
COMPONENT AREAS (PHYSIOGRAPHIC)
Zone Evaluation
SPECIAL STUDY AREAS
Entries-Roadways
Highway Entrance Recommendations
Highway Landscaping and Planting
Missouri Boulevard
Subd iv isions
Subdivision Beautification
Open Space
River Edge
Signage
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METHODO LOG Y
The first part of this study deals with general observations
of condit ions having regional dimensions . Subsequently,
more spec ifi c information dealing with much smaller areas
is presented and, finally, recommendations pertaining to
very well defined areas are presented as first priority
objectives.
Recognizing the intimate interrelationships of the natura l
environment, the position of Jefferson City with respe ct to
the statewide transportation network, and the city itself,
he study begins with a descriptive stateme nt of the
physical, geographical and historical contexts within which
this intera ction occurs.
This section is followed by a summary of the city's
natural site co nditions and general land use pattern . This
information is synthesized into an identification of
physiographic zones that are i ntended as the basi c
geographical units of current and future beautification
efforts . General analysis statements pertaining to beautifica -
tion activities within th ese zo"nes are enumerated .
8
From among the physiographic zones, special st udy areas
were singled out on the basis of a determination that
within these areas first phase beautif ication efforts are
most lik ely to result in the most prominent and important
improvemen t s. Program recommendations were made for
these study areas following the identification of deficiencies
and problem generators related to physical development
and landscaping .
The scope of the study was then narrowed to a detailed
assessment of the cu rrent con dition of the most prominent
areas of th e c ity, primarily the Central Bus i ness District,
the open space system, and the river edge.
It is emphasized that the recommendations in this study
are concerned not only with the comfort and convenience
of Jefferson City residents, but also with that of visitors
from outside the c ity .
REGIONA L SETTIN G
Jefferson City is located very near to the center of the
state of Missouri, midway between the Kansas City and
St. Louis metropolitan areas. As the state capital, it enjoys
direct highway connections to all of Missouri's major cities
and is an intermediate stop on the route from St . Louis
to the popular Lake of the Ozarks recreation area.
Jetterson City is located in the ce nter of t he state.
Highway 63 to northern Missouri and Highway 54 to the
northeast converge on the f lood plain of the Missouri
River just north of the city . Route 54 continues to the
southwest through Jefferson City to the Ozark Plateau .
Route 63 continues in a southeasterly direction . Highway
50 traverses Jefferson City from east to west connecting
St. Louis and Kansas City . Within Jefferson City , these
highways are limited access expressways promoting a
continuous flow of through traffic. Under these
circumstances there is little to induce motorists to stop
over in Jefferson City. The situation could be significantly
altered by redesigning and landscaping the approaches to
the city and by providing environmentally compatible
signage to encourage overnight visits .
9
The ci ty is situated above the limestone bluffs that delimit
the southern edge of the Missouri River flood plain. The
topography of the high ground is very uneven, resembling
an eroded plateau shaped by centuries of stream action.
The slopes sepa rating the valley and ridg es vary
co nsid e rably in steepness and areas of level ground are
very small, being limited to ridges and valley floors.
Although the
interconnecting
as a whole is
rolling terrain,
ments into a
10
major streets in the · city and nearby
highways follow ridges, the street system
an orthogonal grid superimposed upon the
bringing the human and natural environ-
somewhat cont radictory juxtaposition . An
Jefferson City skyl1ne: view from southeast
equally dramatic contrast is created by the broad flood
plain below the city, which reaches widths of up to two
miles, af fordin g many fine views of the wooded bluffs to
the north. Development on the flood plain is very limited,
and although the river has been channelized, re cent
proposals have ca lled for the construction of a levee that
would allow for more intensive development practices .
The area surrounding the city is primarily agricultural, with
most farming taking place in bottom lands and areas of
moderate slope. Stands of mid-latitude deciduous forests
are common, but there are no stands of virgin timber
remaining in the immediate vicinity
Two railroads serve the community: the Missouri Pacific,
which follows the Missouri River on the low ground below
the bluffs along the south bank; and the
Missouri-Kansas-Texas which runs along the bluffs forming
the northern edge of the Missouri River flood plain . The
presen c e of the Missouri Pacific tracks between the city
and the river is seen as an obstac le to full utilization of
the river for recreational and urban beautification purposes
The Missouri Pa c ific tracks form a physical barrier along the
nver edge .
HISTORY OF SETT LEMENT
Although Jefferso n City was orginally designated as th e
location of the Missouri state capital in 1821 , population
growth was slow until the state penitentiary and state
cap itol were cons tru cted in 1833 and 1842, respe ctively.
Commercial development was originally related to the
Missouri River which provided access to the city via flat
bo ttomed river boats. The complet ion of a rail line to St.
Lo ui s in 1855 , however, proved t o be a much more
important f actor in establishing the city's cur rent eco nomi c
base .
Economic diversification and the growth of state
government succeeded, by the time of the Civil War, in
making Jefferson City an important Missouri settlement
that has since enjoyed a role shared by few cities of its
size .
11
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PHYSIO G RAPH IC REG IONS
The basis for understanding the component structure of
Jefferson City and the first step in organ1zmg the
beautification effort was to define the physical con te xt of
the region . Recognizing that the relevant environment is
reflective of both natural and man-made forces, it was
determined that beautification standards should have a
geographical basis, recogn1z1ng existing conditions within
well defined areas . Th e physiographic regions identified in
the accompanying figure are defined primarily on the basis
of natural and man-made conditions, although several of
the areas are previously defined planning study areas or
urban development project areas .
The most significant natural features of Jefferson City are
the Missouri River, the Missouri River flood plain, Wears
Creek, the bluffs, and the slop in g topography of the city.
The Missouri River is probably the most important natural
asset, having considerab le scen ic beauty. It a ls o has some,
alth ough limited, econom ic importance The River's flood
plain is the most expansive area of flat land in the
immed iate environs of Jefferson City and its "best use" is
the subject of strong differences of opinion . Wears Creek,
which flows through the west sid e, enters the Missouri
River a short distance west of th e state capi tol. Currently
under study by the U.S. Army Corps of Engin eers, it is
subject to seasonal flooding, which affects the lowest
ground within the city limits .
The bluffs n orth of the river, spa rsel y
present time, contribute sign ifi cant ly to
of the local landscape and can be
within the Cent ral Business District.
developed at the
the visual quality
seen from points
The b luffs on the so uth edge
developed somewhat randomly
visual variety . From Lavinia Park
landscape dominates the bluffs
bridge . From that point to
dominant atop th e escarpment.
of the river have been
and display cons iderabl e
on the west, the natural
to the Missouri River
the east, buildings are
The excellently sited state capitol is situated upon an
isolated segment of the bluffs framed by the low ground
at the so uth of Wears Creek on one side, and the gap
at Lohm an's Landing on the other. The building itself
appears to be a continuation of the bluff as the natural
and man-made are visually united . To the east of
Lohman's Landing, the bluffs rise abruptly at the
beautifully landscaped governor's mansion. Natural land-
scaping dominates the bluff east to Ellis Porter Park
where the city ends and open country begins again . The
only two interruptions in the cont inu ous greenery in this
segment are a high-rise apartment structure, which is well
related to it s site, and the state penitentiary.
The Missouri Pacific Rai lroad tracks, as has been noted,
are responsible for the lack of contact between the city
center and the river, but this may be a blessing in
disguise. Lack of access to the riverbank could in the
long term result in a regenerated wildlife habitat at the
city's doorstep, much to the advantage of the community.
High Street, the principal street on the ridge spanning the
downtown area, is parallel to the river. Four other ridges,
one which is followed by the route of Industrial Drive to
the west; the second, extending to the southwest along
Highway 54; the third on Hay selton Drive; and the fourth
on Boonville Road, are prominent elements of the
cityscape .
Grid pattern street systems have been developed in newer
subdivisions in and around Jefferson City, often without
consideration for natural land forms and native vegetation
cove r . This topic will be cons id ered in a later section.
The beautification effo rt s hou ld acknowledge the manner in
which land use and urbanization relate to this physical
framework . It is the interaction of these elements and
their manner of organization which forms the physical
basis of the v isual atmosphere of the c ity .
13
STUDY AREAS
Previously comp let ed an d ongoing spec ial urban planning
stu di es in Jefferso n City have fo c used on various
geog raphi ca l districts of the ci ty . While such topics as
traffic co ntrol and physical redeve lopment programs have
been cons id ered i n th ese efforts , planning for beautifica-
tion, th e ob jec t ive of this study, recognizes severa l
addi t ional areas of th e city that are characterize d by
localized development needs:
14
Th e northern and southern approaches to the
ci t y are lin ed by disorganized land uses and
offensive billboard s whi ch impinge o n cap itol and
sky line ve iws.
Future improvements to Highway 54 upon the
flood plain sh ou ld preserve capito l views . Control
over adjacen t development should be as mu ch
the subject of plann ing efforts as are alignment
decisions .
Within the industrial /com mercial area west of the
city, alo ng Industrial Drive, landscaping has been
ove rlooked in new development projects. The
drab grey State Archives Building ha s been site d
so as to p rec lud e eve n the most rudim entary of
landscape treatment along the highwa y edge . A s
lack of landscaping around buildings of this type
is no longe r app ropriate. public policy should be
directed at establis hin g landscape standards for
industrial zones.
The extens ive redevelopment of the Capitol West
district affords a signifi ca nt oppo rtunity for
imaginative and inn ovative achieveme nts in
land scapi ng, architec ture and civ ic design .
The upgradi ng of the pedestrian and vehicular
Central Business District has
several past redevelopment
to be a major public
subje ct of a later sec tion
enviro nment in th e
bee n discussed in
plans and co ntinu es
concern. It is also the
of the c urrent study .
Th e design geomet ri es of highways in the
v icini t y of Jefferson City have substantially
p rec lud ed the ex t ens ive use of plant mate ri als .
Howeve r, remedi al pl an ting proposed in this
st udy ca n be utilized t o co nsiderably up g rade the
highway environment.
The beautification of M issou ri Boulevard will
st rongly in flu ence public and official attitudes
towa rd st rip commercia l development . Design and
planning cont ro ls will be required to forestall the
sp read of this style of development.
Future beautification of the ca mpu s of Lin co ln
Univ ersity should co ntribute to its special identity.
M ost commerical areas are character ized by
minimal land scape treatment. Highway 54, to the
southwest, exemp lifi es th e negative aspects of a
lost oppo rtunit y . In the absence of firm policies
for future landscape-sensitive development areas
of this t ype could eas il y deteriorate with each
physical addition.
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COMPONENT AREAS [PHYSIOGRAPHIC )
Future beautifi ca t ion planning shou ld be conducted within
a framework of logical geographical zones, having similar
problem generators and/or implementation requirements.
Component areas fall into three broad ca tegorie s: river
related, highway re lated, and genera l urbanized zones .
River re lated : Zone R-1 encompasses the river itse lf. Zone
R-2 is the area o f the flood plain wh ich is as yet
undeve loped .
Highway related : Zone H-1 inc ludes the right-of-way of
U.S . Hi ghway 50 , east o f Hi g hway 54, and all abuttin g
property . Zone H -2 includes the right -o f -way of U .S .
Hi ghway 54, south and southwest of its junction wi th
Highway 50, and al l abutt in g property . Zone H-3 in c ludes
the right-o f -way of U.S. Hi ghway 50 , west of its junct ion
w ith Highway 54, and all abu ttin g property . Zone H-4
includes the right-of-way o f U .S. Highway 54, north of its
junct ion with Hi ghway 50, and includes all abutting
p roperty and the Missouri River br id ge.
General urbanized areas: Zone C-1 encompasses the bluffs
along the north side of the flood plain that are just
beginning to undergo development . Zone C-2 inc lud es that
portion of the flood plain that ha s already been
developed. T he Jefferson City Airport and the suburb of
Cedar Ci t y are located in this zone. Area C-3 is
cote rminou s with the Capita l West Urban Renewal Area.
16
Zone C-4 is the area studi ed in the Misso uri Boulevard
Redevelopme nt Plan . Zone C-5 is an area of large lot
industrial and semi-public development in the v icinity of
the Mi ssour i Pa c ifi c branch line on the west side. Zone
C-6 is a predominantly re sid en tial district and is one of
four larger zones d efined by the c ity's li mited access
highway system. Zone C-7, also primarily residential, is
similarly defined by the highway system and in c ludes
much public a nd semi-pub li c open space, including the site
o f Jefferson City Hi gh School.
Zone C-8 is a large undeveloped zone on the c ity fringe.
Zone C-9 includes the o ld er part of the city, its highest
density deve lopment, and the larg es t population concentra -
tion . Zone C-1 0 is the Central Business Distri ct and
in c lud es major state office fa cil ities and the c ity's retail
trade center. Zone C-11 is a prima ril y residentia l area
bounded by a highway , the river and the west side
industrial zone .
Zone C-12 id ent ifi es the outer rin g of park and
rec re ational space proposed in the 1968 Ha rl and
Bartholomew Comprehensive Plan, and includes the flood
plain of Wears Creek . Th e campus of Lin co ln University ,
now implementing a land scap i ng and beautification plan of
its own , comp ri ses Zone C-13.
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ZONE EVALUATION
The ultimate attitude toward beautification within these
zones should be as much concerned with conservation as
with action programs. Inasmuch as the scope of this
study does not allow for specific beautification plans for
the entire city, the following general evaluative commentary
is offered:
Zone R-1 : The river is recognized as the key element of
the natural landscap e. Repeated channelization and flood
control efforts are se lf-pe rpetuating . The river should be
conside red as a natural habitat and the objective of scen ic
views from nearby overlooks. The use of the river as a
transportation artery should, of co urse, be sustained.
18
Zone R-2: The flood plain must be understood as a living
part of the river and its importance as a catchment area
for seasonal overflows shou ld not (and cannot) be negated
by feats of engineering. Further development of the plain
is undersirable, and it should be retained as a scenic
natural or agricultural area. The city should seek to annex
all flood plain land adjacent to the corporate limits and
zone it for recreational and agricultural use.
Zone C-1: An unbroken vegetative cover now adorns the
crest of the north bank bluffs. This remains one of the
a rea's irreplaceable scenic assets, and development should,
accordingly, be carefully contro ll ed. Irreparable damag e to
the tree cover cou ld result in a missed opportunity.
Zone C-2: Existing flood plain development is in need of
positive beautification action.
Emergent sand bars in the Missouri River; flood plain in the distance
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Zone C-3 : The urban renewal plan for this area is
generally s upp o rt ed . Future land scape activity shou ld bring
definition to individual streets by means of tree plantings
which wi ll cause each t o be associated with a
cha racter ist ic spec ies .
Zone C -4: The traffi c i mprovement plan f or Missouri
Boulevard is supported . Details for landscape improvements
are elaborated in a subsequent section of this study.
Auto -oriented strip comme rcial development: visual chaos along Missouri Boulevard
20
Industrial development on the flood plain
Zone C-5 Industrial development could be visually
improved with professional landscape treatment.
Zones C-6, C-7, C-9 C-11: Public policies and programs
within residential areas should respe c t pedestiran amenities
as well as those of autos. Public improvements needs and
new private development should not subordinate beautifica-
tion requisites .
Zone C-8: It is desirable to retain open areas on the city
fringe.
Zone C-10 : Suggested CBD improvements are detailed in a
subsequent section.
Zone C-12: Open space recommendations are discussed in
a later section .
Zone C-13: Beautification actiVIties on the Lincoln
University campus should be coordinated with municipal
beautification activities.
Highway Zones : Highways leading into Jefferson City are
poorly landscaped and contribute little to the beautification
of the community Uncoordinated development adjacent to
rights-o f -way has led to conflicts among visual elements.
Many buildings along the highways appear to have been
developed with little consideration for landscaping or for
the manner in which they relate to the roadway . Cor-
rective action is required .
Additional Comments : As a whole, the city has very few
avenues for pedestrians, and little concern for how he
relates to the street scene, how he moves or walks in
the city after he has left his car, and what understanding
or feeling he may have for the organization of the
elements of the cityscape or its natural context. Bicyclists
are similarily ignored . Despite the growing popularity of
bicycling and the desirability of this mode from the
viewpoints of ecology and physical fitness, there seem
c urrently to be no plans calling for bicycle paths or tra ils
that will enable cyclists to enjoy the beauty which exists
or is to be restored.
2 1
SP ECIAL STUDY AR EAS
The importance of beautification goes beyond visual and
tactile appreciation. There can be, for example, definite
economic benef its to be derived from beautification
programs . This section deals with specific program needs
that, if satisfied, will result in improvements having the
greatest impact within the context of overall beautification
objectives .
ENTRIES -ROADWAYS
It has already been suggested that, given the ease with
which automobile trips through Jeff erson City can be
comp leted, inducing motorists to stop i n the town for
eating or sightseeing poses a very cha llenging problem. As
conditions now exist along major highways leading into
the city, very little that is visible to the motorist would
encourage a stopover. It appears that a commitment to
attracting stopover traffic has not yet been physically
expressed.
The most dramatic entry into the town is from the north
on Highway 54, south of its junction with Highway 63 .
As now exists, there is very little in the organization of
this approa c h that creates a sense of entry. Bil lboards and
building advertising sully the landsc ape where 63 meets 54,
providing little evidence that the seat of state government
l1 es just ahead . Good views of the capitol dome in the
di stan ce do create a sense of anticipation as one proceeds
ac ros s the flood plain , but once the bridge is crossed,
th ere is n o clear route provided to facilitiate an entry into
th e c ity .
This problem
planning stage
Pr ogram .
22
should
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be
the
given prior ity
Capital West
in the phys ical
Redevelopment
The entry from the north is partially saved by the unique
change in topography that occurs as the highway
descends the bluffs onto the p lain This change creates
something of a sense of entry, but for other routes of
access from the east, south and west, there is no evident
c hange in the landscape as the city is approached, and
little is offered to induce the motorist to stop over. These
factors should be considered in the current Highway 54
alignment study Highways are of special importance in
that they are the means by which we pass through the
landscape over variable topography past different e lements
of the cityscape . This is no p lace for monotonous edges
or i ntrusive blight.
Along Highway 50 to the west, buildings and landscape
treatment offer no sense of order, no respect for natural
phenomena, and no sensitivity to the potential of the
progression th rough space experience. In spite of this,
there are fine views of the capitol dome to be enjoyed.
Future development should recognize and accommodate the
opportunities thus presented.
Along Highway 54, south of the city, hotel, motel, and
commercial deve lopment on slopes above the highway
disrupt initial views of the city from southwesterly
approaches . Particular care should be devoted to the
proper adaptation of development to sloping areas. A
specific determination of uses appropriate to such slopes
would seem to be a legitimate pub lic policy objective .
In addition to limited access highways, certain streets and
sec ondary highways should be evaluated for current
landscape quality to facil itate the formu lation of po li cy
s tatements regard i ng future deve l opment on abutting
property . Sc hematic design criteria for (A) rural roadways,
(B) res idential streets, (C) commerical streets, and (D)
highways are attached as a technical appendix .
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HIGHWAY ENTRANCE RECOMMENDATIONS
All landscape planning for the highway approaches into
Jefferson City should respect one fundamental objective:
the preservation and expansion of vistas of the capitol
dome. In addition to sensitive placement of significant
landscape features such as tree stands, artificial
obstructions such as billboards should be removed and
new construction near highway entries should be
appropriately regulated .
The accompanying series of photographs, taken along
Highway 50 as it leads into Jefferson City from the west
illustrates the kinds of beautification opportunities associat-
ed with highway entries.
Deficiencies in the current order are noted on the
photographs . The distracting and unattractive impact of
billboards is a relatively simple problem to solve and
legislative means could provide the desired relief . Increasing
plantings would also improve the approach, but the
general shallowness of the soil is a hindrance. In those
areas where soils permit, native woody plants, such as
cedar and sumac, should be planted in clusters.
Accordingly, crown vetch, which can grow abundantly in
shallow soil should be utilized to add texture to the
roadside. These plant materials would require little
maintenance.
Among other main highways, Dix Road is vulnerable to
some of the blighting development that has been noted .
Further development should be monitored by public
agencies and all plans carefully reviewed before issuance
of permits.
24
1 Outdoor advertising degrades the landscape .
2 Light posts and overhead wires frame first view of capitol dome.
3 Dominance of capitol dome is clearly established ...
\
4 ... But visual distractions compete for attention. 1 Strictly functional highway design ha s its sho rt comings.
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5 Entry is lined by utilities and back doors . 8 Even within the city, view of the dome rema in s obst ru cted.
-
6 Intrusive presence brought on by insensitive site planning 9 Access to local streets in city center is poorly established.
HIGHWAY LANDSCAPING AND PLANTING
In the United States, the gene ral philosophy of roadside
planting was enunciated by the American Asso c iation of
State Highway Officials in 1932 when it declared that
"Roadside beauty must conse rve, enhance and effectively
display the natural beauty of the landscape through which
the highway passes ." And although the importance of
functional uses of planting along highways has in creased
steadily since that time, the AASHO prin c iple li es at the
root of the recommendations co ntained in this report.
Recognizing that highway landscaping is frequently
remedial , since much money is spent screening th e
ugliness c reated by com mer cia l despoilers, a major
fun ctional objective is to crea te a pleasing visual transition
between the highwa y and its surrou nding s. A second,
related objective is to provide continuity and orderliness in
the sequence of travel.
Other functional uses of highway landscaping include s lop e
co ntrol, prevention of erosion, screening to reduce
headlight glare and unsightly vistas, and sound dampening .
In general, the intent of land sca ping the roadway edge is
not to crea te a botanical qarden. but th e provision of
visua l accen ts in association with roadway fixtures such as
bridge abutments, sign star:1dards and culvert wall is seen
as consistent with overall objectives.
26
Crown vetch ground cover is finely textured
and co ntributes to erosion control.
Staghorn sumac displays brilliant autumn color.
Cedar and other eve rgre ens offer year-round beauty.
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MISSOURI BOULEVARD
Nearly every municipality in the United States has within
its jurisdiction an auto-oriented commercial strip simi lar to
Missouri Boulevard. Usually linking interurban expressways
with older city centers, these strips have largely developed
subsequent to the onset of the interstate highway system .
They are characteristically similar, with numerous franchised
retailers and abundant garish signs that dominate the
roadside and compete for attention .
An ill -defined gravel shoulder, extensive exposed utility lines
and a nearly total lack of landscaping contribute
substantially to the degraded physical quality of the
Missouri Boulevard frontage.
To date, an excellent traffic improvement plan calling for
an upgraded roadway surface , provision of curbs and curb
c uts and channelization of flow has been completed and
is endorsed in the current study .
The improvement of the visible environment of Missouri
Boulevard must be based upon the recognition that many
of its commercial enterprises are economically marginal,
and that they depend almost entirely upon automobile-
borne trades. It must be recongized that any physical
improvements must assume the continuing dominance of
the automobile in this area and that many businesses may
not have the resources required for extensive improve-
ments .
It should be noted additionally that not only are there
very few prototypical examples of significantly rehabilitated
areas of this type nationally, there are none in Jefferson
City . While this may be a disorienting factor , in this case
it might also be viewed as an opportunity.
28
The environmenta·l improvement of Missouri Boulevard
large ly depends upon the reorganization of parking areas,
establishment of controls on sign size and materials,
relocation of utility fixtures and initiation of a limited
planting program .
Signage
Current signage along Missouri Boulevard projects an
image of visual clutter and is not conducive to safe and
efficient traffic operations. Recognizing, however, that
signage is important to this type of strip development,
consideration should be given to seeking a means t~rough
which it can fulfill its proper function without being
self -defeating .
One means that might be employed would be to combine
now disparate adjacent businesses into larger, discrete
groupings . Each cluster would be identified by a single
sign bearing a collective name and that of each business,
at a compatible scale . With fewer signs competing for
attention, traffic improvements and visual enhancement
would be facil iated .
Parking
Walls, fences and shrubbery should be utilized to separate
and isolate the different parking areas strung out along
the street. Buffer strips should be at least 10 feet wide.
Standards for new parking areas should call for curbing,
lane dividers and marked spaces . Of equal importance is
the need to des ign parking areas and their relationsh ips to
building entrances so as to create safe, well-defined
reserved pedestrian pathways .
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Utilities
One malady shared by many commercial districts,
including Missouri Boulevard, is the presence of
numerous poles and wires, frequently at the curb
line, but more generally between business
tacades and the street edge. A long term
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Missouri Boulevard, current condition
relo ca tion program to remove these fixtures
either through burial or relocation to the rear of
buildings is strongly recommended and should be
a major concern in municipal /utility company
contacts.
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--~·---·" ------Landscaping
In addition to alterations to signage and utilities
placement, the addition of plant material is
necessary to achieve the desired level of
beautification. It is suggested that on-street
park in g lanes be co nvert ed to grassy parkway
strips with trees that would bring shade to the
Missouri Boulevard, with landscape improvements
roadway, yet be tall enough to sustain the
visibility o f roadside business . Compensa t ory
parking would be provided in the re-design of
existing off-street lots. Low shrubs should be
ut ili zed for buffers as necessary .
3 1
SUBDIV I SIONS
Long-term changes in attitudes toward beaut ification and
the occasional reordering of public priorities provide the
background for current beautification efforts that are largely
remedial in nature. The wholesale removal of street trees
from American cities without effective replacement policy
reflected the development of attitudes favoring automotive
circulation systems. Today's beautification efforts represent
an implicit acknowledgement that beautification per se
need not conflict with other objectives. Nonetheless,
numerous are the examples of new deve lopment projects
that do not g ive due considerat ion to even the most
minimal of beautification goals, suggesting that future
beautification efforts may also be remedial. Obviously, it is
desirable to consider beautification in the project planning
stage and public policy should require that this be done.
Certain beautification considerations appear to have been
overlooked in the planning and development of some of
Jefferson City's newer subdivisions. The imposition of
orthogonal street gr id patterns on sloping or irregular land
surfaces has failed to take advantage of the design
potential of the natural landscape, particularly the provision
o f views, the open space potential of natural drainage
c ourses, and physical diversity among individual building
sites .
Lands c aping in subdivisions is also lacking . Very little plant
material has been provided by developers, who seldom
provide landscaping, or required by public agencies, who
rarely insist upon it.
32
Lack of landscape development and arbitrary si t ing fail to exploit
natural advantages.
Street layout conflicts with natural slope and utilities are prominently
and insensitively placed .
Subd ivis ion tree planting could bring shade to facades
most fr equen t ly exposed t o summer sunsh ine, add seasonal
color variety to the community, and contribute to
predestr ian amen ity along pathways . Sh r ubs could be used
to define pub lic spaces, such as playgrounds, contribute to
t he privacy of individual res idences, and c reate visua l
texture and diversity
Standard subdivision regulations and contro ls intended to
ensure privacy, access, exposure to li ght and air, etc. have
a tendency to direct development patterns into unneces-
sarily restrictive channels. In some localities, publi c policy
is directed toward requir i ng that fixed performance
standards be fulfilled in community development practices.
I n this manne r , pub l ic open space design has been
enhanced, natural p l ant i ngs have been preserved, and
overall environmental qual it y has been i mproved .
Subdivision beautification efforts must depend first, on an
acknowledgement that it is a des i rab le, legi t imate objec ti ve;
and second, on the replacement of unduly restrictive
contro ls that inh ib it design by appropriate performance
standards.
A mi nimu m o f landsc ap ing w o uld he lp t o o ve rco m e the appearan ce o f barrenn ess apparent here.
33
.....______ _______ _
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Typical subdivision, present condition
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SUBDIVIS ION BEAUTIF ICATION
Specific public objectives that could be reflected either in
the zoning review process or in the issuance of permits
could enhance the environmental quality of yet-to-be -built
subdivisions if the following standards are applied :
34
Street layouts should respect the slope of the
land and avoid the despoilation of natural
features, such as tree stands, rock outcroppings
and st ream co urse s.
Typical subdivision, with landscape treatment
Common open natural areas should be encour-
aged by allowing developers smaller minimum lot
sizes .
Conventional overhead utilities should be co n-
structed underground, possibly in con jun ction
with street grading and paving.
The c ity department of forestry could offer home
owners trees and shrubs at cost to encourage
new plantings.
The city sho uld explore the possib ilit y of
enacting a Planned Unit Development ord inan ce
as a means of conserving open areas in new
development tracts.
35
OPEN SPACE
Open space planning co nstitutes a spec ial study topic
because it repr esents a conscious effort to create a
harmonious relationship between man and the . natural
environment. Open space planning not only offers an
opportunity to "disp lay " prominent aspects of the natural
and human environment, but can contr ibute to the
creation of a recreational infrastructure devoted to leisurely
automotive, bicycle and pedestrian movement.
The Comprehensive Plan of 1968 contained a proposal that
would, in essence, link major park and open space areas
by means of stream easements and boulevard landscaping,
Entry po ints would be provided where streams were
crossed by ex1st1ng roadways, rather than through
acquisition of privately held property. These entrances
cou ld be developed as mini-parks to serve as
neighborhood focal points and provide immediate recrea-
tional opportunities for sma ll chi ldren . Picnic facilities might
also be provided at entries .
As one might walk or ride a bicycle along the
stream-oriented pathway, organized space would give way
to a more natural landscape . Trails would thread through
wooded areas and meadows. Not only would recreational
needs be served by this type of space utilization, but
streams would be protected from encroaching urban
growth and the flow of water would be unimpeded and,
eventually, unpolluted .
36
The campus of Lin co ln University might be linked to the
downtown and major parks in a similar manner . Possible
nature trail s cou ld be connected to the ove rall system . A
pedestrianway-bikeway could be created that would follow
the bluff above the Missouri River interconnecting
overlooks having uninterrupted views of the flood plain
and river . It could also traverse the scenic easement next
to the river, adjacent to the downtown area. A trail
system would bring the entire recreational network of the
city to residential neighborhoods and provide the basis of
tourist parking facilities and camp sites. Servi ce for
overn ight campers could be a program ob ject iv e, since
many tourists now bring their own accommodations along
with them as they travel.
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RIVER EDGE
The physical separation of the river edge and the Central
Business District has been noted . Although increased public
access to the river i s considered to be a desirable
planning objective, the fact of no access has allowed
natu ral vegetation to develop freely along the water edge.
The maintenance and conservation of this natural edge
co ndition is considered to be very desirable.
The redevelopment of Lohman's Landing is seen as a
prerequisite to the restoration of public access, and should
be planned as part of a comprehe nsive program that
would encompass off-shore park development proposals as
we ll as those for the river edge itself.
Off -shore development on emergent sandbars should
respect both natural river forces and existing plant
materials. The retention of natural forms should be the
cent ral objective of physical development schemes . The
formal type of park development characteristic of most
public open areas in the city should not be considered as
a legitimate alternative .
The staff of the Missouri State Conservation Department,
having the depth of expertise required to participate
effectively, should be involved in any river development
plans.
~ Lohman's Landing, a major restoration opportun ity
39
SIGNAGE
The proliferation of signage along local highways and
throughout the city is both disorienting and unaesthetic.
Outdoor advertising signs, in particular billboards and
rooftop signs, have an extermely blighting effect on the
visual environment. This is a particularly difficult issue to
deal with since a special effort has al ready been made to
dea l with the problem when the provisions of the Zoning
Ordinance regarding billboards and signs were amended in
1971. It is apparent, however, that the past five years
have not brought any solution. Our recommendations
include:
40
1. A careful review should be made of permissible sizes
for signs for various types of buildings and uses .
It is our contention that permissible sign areas should
be substantially reduced and, in all cases, they should
be based on the area of the face of the building and
not on lot size . This latter type of provision would
address the problem of large signs erected on lots
with structures with a small building area, such as
filling stations .
2 The zoning ord in ance should stipu lat e that in the
future it will be illegal to erect the f ollowing t y pe s of
sign s:
Billboards;
Signs painted directly o n th e walls of buildings;
Signs which are n o t app li cab le to the prop erty or
building up on whi ch signs are loca ted ; and
Signs erected on th e roofs of bu il d ings
To ensu re that such ex1st 1ng signs are phased out
over time, no alte ration, reconstruction o r relocation of
such signs should be permitted In addition, any sign
going unused for a pe riod of thir t y days or more
should be removed; and no building permit should be
issued for th e a lt eration or en largement of ex isting or
construction of addit iona l fac iliti es on a lo t where
such sign s are located until such signs are removed
It is strongly recommended that the above changes to the
Zoning Ordinance regarding signage be implemented as
soon as is feasible. While little can be done in the way
of legislating for the removal of ex isting unsightly signs,
the City can take strong measures to ensure that in the
future such signs are not e rected .
41
PART II : CENTRAL BUS I NESS DISTRICT
STRUCTURE OF THE CENTRAL
BUSINESS DISTRICT
CBD --PROBLEM GENERATORS
Railroad Yards
Utilities
Parking Lots
Outdoor Adve rtising
Skyline Obstructions
DEVELOPMENT OPPORTUNIT I ES
Madison Street Overlook
Lohman 's Landing
High Street
The Thomas Jefferson Library Site
Visitor Fa ci lities
PRESERVAT ION
H IGH STREET MA LL
Typi c al Street Treatment
Library Park
Pass -Through Parks
Parking Lots
Planted Buffers
STREET TREE PROGRAM
Tree Pallette
High Street
Capitol Aven u e
Monroe Street
Jefferson Street
M adi son Street
Page
44
48
48
49
50
50
51
52
52
52
52
52
52
54
56
58
60
61
62
64
64
66
68
69
70
71
73
STRUCTURE OF THE CENTRAL BUSINESS DISTRICT
The physical configuration of the Centra l Business District
has a primari ly linea r orientation, and High St reet is the
p r incipa l axis o f organization. It is a lso the dominant
commercial street in the central area, its functional
importance complemented by its physical and visual
prominence. In the three blocks between the state capitol
and Adams Street, H igh Street fol lows the crest of a
44
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natural ridg e which gives the street a higher elevation
than that of adjacent areas. Declin ing slopes to the no rth
and south make for fine views . At some cross-streets the
bluffs on the other side of the Missouri River flood plain
can be seen. West of the capitol and east of Adams
Street , High Street descends to lower ground.
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The state capitol, designed by Tracy & Swartwout and
completed in 1918, is the most significant building in the
central area and its dome, adorned with a statue of
Ceres, the goddess of the harvest, rises some 238 feet
above grade, dominating the city's skyline. To the east,
the Missouri governor's mansion, completed in 1871 and
restored to its original condition during the administration
.. -....
t ••
Missouri State Capitol Building
46
of Governor Warren Hearnes, occupies an exceptionally
well landscaped site overlooking the river. The capitol and
the large state office building nearby anchor the western
end of the shopping district. The eastern end is defined
by the Thomas Jefferson Library and the Cole County
Courthouse, which has recently been refurbished.
Thomas Jefferson Library
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CBD -PROBLEM GENERATORS
There are severa l as pe c ts of the centra l area's physical
appea ran ce that are either v isua ll y obtrusive or in complete ly
developed so that opportunities for beautification are
nume rous.
RAILROAD YARDS
Almost all of the low lying land along the river bank is
occupied by railroad classification yards . Thi s is not on ly a
visual blight, but the potential utilization of the river edge
for recreation purposes is effect iv ely negated . In p laces, as
River edge railyards, view to the west
48
many as e ight tracks impose a virtually imp enetrable
barrier between th e area of urban development and the
riverbank. Th e removal of the yards to new lo cat ion and
the reduction in trackage from eight t o two lin es would
present an opportunity for limited river edge redevelop -
ment. The cost of a major relocation is probably not now
ju s tified for public use of the river edge . Nevertheless,
future railroad management decisions that might have an
impact on this area shou ld be sensit iv e to public
objectives .
River edge railyards, view to the east
UTILITIES
Unsightly overhead power and telephone lines also intrude
upon the environment , obstructing views of buildings,
green areas, and the sky. Wires a lso conf li ct with trees,
which have to be trtmmed repeatedly to prevent
interferences. As the Jefferson City tree planting program
moves forward, thts problem will become increasingly
evident.
Aside from aesthetic rationales, which are plentiful, the
relocation o f wires underground would be desirable from
an operational standpoint. A reduction in support poles
would facilitate sidewalk, parkway, and street maintenance;
and would reduce problems of weathering associated with
continual exposure to the elements. Short-term service
disruptions as occur during seve re storms would also be
mitigated.
In several U.S. cities, wires have been maintained
underground since the nineteenth century. A phased
relocation program for Jefferson City would first require
that all new installation s be placed underground, and
second, that all prominent exposed wires such as along
arter ial streets be relocated as soon as possible. Relocating
wires on local streets and alleys would be afforded a
lower order of priority
49
PARK IN G LOTS
Considerable ce n tral a rea land is given over to surface
parking, yet most parking lots are harsh, unattractive
p lace s. This need no t be t he case. Elementa l lands ca pe
treatment would have a significant visual impact o n these
areas. Aside f rom the immediate goal of beautifica tion,
improved landscaping in parking areas co uld define space s,
moderate climatic conditions and direc t water runoff .
-
Parking lots need not be harsh environments .
50
Si;Jnag e does not always respect architectural detailing .
OUTDOOR ADVERT I SING
T wo e l ements o f th e c it yscape whi c h l ack phy s ical
substance , but freguently ass ume undue v isual pmminence,
a re outdoor advert ising and comme rcia l signage. It is to
the benefit of High Stree t that business signs a re not
hung perpendicular to sto r e front facades . T he visual
appeal of the street, nevertheless, co uld be enhanced
somewhat by the impos iti o n of sign con trols inasmuch as
sign s now in use frequently obscure arch it ectural features.
As ano th e r exa mple, some signs do not respect seco nd
floor co rnice lines a nd partially o b st ru ct second flo o r
windows.
SKYLINE OBSTRUCTIONS
Th e preservation and restoration of scenic views is an
important beautification objective In the case of rel oca ting
overhea d power lin es underground, fin e views can be
restored with relative ease. The improper siting and
massing of building s, on the other hand, can lead t o
permanent obs tru c ti on o f good v iews .
With the expanding o ffi ce space needs of a growing st ate
government, the trend toward la rger building s in J e ffers on
City will probably con tinue in the co ming years . Before
any such stru c ture s are approved for construction, it is
Relay tower ignores texture and scale of cityscape .
impo rt ant that there is no threat to scenic views. No new
building, f o r example, should be permitted if it obstructs
any o f th e existing views toward the bluffs from High
Street.
The preservation of the sky line with the capito l as the
dominant element must also be conside red as a high
priority objective. The telephone compa ny rela y tower a nd
the new Hol id ay In n have already been cited as being
in tr us ive on the skyline N o further constr uction should be
perm itt ed which further detracts fr om the visual dominance
of the cap itol dome .
DEVELOPMENT OPPORT U NI T IES
M A DI SO N STR EET OVER LOOK
At the no rt h end o f Madi son Street, whe re it termin at es
on th e riv er bluff, is a small area that appears to be an
ove rl o ok , but f a ll s f a r s hort of rea lizing its full potential.
Th e d eve lo pm ent of thi s site would call f o r th e elimination
of vi ew o bstru cting overhead wires , the pro v ision o f a
sitting ar ea and speci a l land sca pe treatment.
LOHMAN'S LANDING
Owin g to th e co nfi g ur ati o n o f th e bluffs eas t o f th e
ca pit o l , th e o n ly po t e nti a l li n k betwee n th e CBD a nd th e
rive r ed ge is at Lo hm a n 's La ndin g w h ic h , in a nti c ip ation
o f so m e publi c use d eve lo pm e nt o n th e ri ve r edg e , ca n
be v ie w ed as a futur e po rt al. Th e full fun ctiona l a n d
ph ys ica l redeve lo pm e nt o f Lo hm an 's La nd in g pres u p p oses
the up g rad ing o f M adi so n Stree t w ith a str o ng ped es tra in
o ri e nt a ti o n , i .e., n ew p av in g a nd p l a nting , a nd th e
i mp roveme nt a nd res t o rati o n o f t he hi st or ic buildin g, w ith
a po ten ti al c onvers ion to o th er u se, suc h as a resta u ra nt ,
b o ut iq ue o r c ra f t ce nter .
HIGH STREET
T he m os t p ro m 1s 1n g bea utifi ca ti o n o p po rt u ni ty in Je ffe rso n
City is th e Hi g h Street sh opp in g di st ri ct . Th e st ree t has a
vi t alit y, leve l of activ ity , an d atm osp here th at has evo lve d
wit h ou t a co n sc i o u s u n ifi e d d eve l op m e nt po li cy . S t a t e
o ffi ce wo rke rs s h o ppin g duri ng th ei r lun c h ho urs, t o ur is t s
v isitin g th e cap it ol a nd loca l res id en t s a ll co ntribu te t o
mak in g Hi g h S t ree t an in te rest i ng and ag reeab le a rea . Yet
lands c ap i ng p rog ra ms can do m uc h to up g rade th e str ee t 's
v isual ap pea l, wi t h th e additi o n of t ree and shrubs, and
its f un c tio nal qu ality, thr o ug h th e provis io n o f sha ded
si t t i ng areas . T h is p la n co nte m p lat es th e c reatio n o f a
t h ree b lock qu as i-m all w hi c h u nli ke p rev io us p roposa ls,
re c ogn izes n o t only t he de sirab ili ty o f a g reate r sensi ti v it y
to pede s tri an ame n ity, bu t th e necess ity of a ll owin g f o r
the unimpeded f low o f th rough tra ffi c and th e re tenti on
52
of so m e o n -s treet parking . Th e d et ail s o f thi s pr o p osa l a re
p rese nted i n a la t er sec ti on o f thi s repo rt.
TH E T H O M AS J EFFERSON LIBRAR Y SITE
Th e libr a ry an d its g ro und s a nc h o r th e eas t ern end o f th e
H ig h Str ee t s h o pping di st ri c t , m a r k ing th e tran s iti o n
be t wee n resi d e nti al and ret ai l la nd use . It is app a re nt th at
the lib ra ry's ro le as a v isua l ga t eway has bee n ac quired
ove r ti me, rath er th an hav in g been p la nn ed as su c h . An
o pp o rt u n it y now ex ist s t o a ff i rm thi s ro le in a ph ys ica l
d es ign se nse. By co nve rting th e libra ry ground s to passi ve
rec rea t io na l use, th e a rea w ou ld be st ro ng ly reori e nted to
pedes tri an use , and th e leve l and div ersi t y o f ac ti v it y in
th e im m edi at e v ic in it y wo uld b e stimul at ed .
A p ass i ve recrea ti o n a l u se wo uld in c o rp ora t e water
fou nta in s, f lowe r be ds, benc hes an d oth e r stree t furn iture
in an e nv ir onment t hat wo uld be in tenti o nall y des ig ned t o
promo te co ntinu o us uti li za ti o n . Th e area w o uld ser ve as a
rest stop f or sh o pp e rs a nd stro lle rs, a co mfo rtabl e wa it i ng
a rea f o r t ransit rid ers , and a mini -park f o r shoppers,
workers a nd nea rb y res id e nts a lik e.
V I SIT O R FAC ILITIE S
In 1975, t e n t ho usa n d ca mp i ng ve hi c les we re sold in th e
state o f Misso uri . Thi s in c reas in g ly pop ul a r f a mil y vac ati o n
mode shou ld be acco m mo d a t ed in su it ab l y d es i g n e d ,
e nvironmen t a ll y compa tibl e park in g a reas w ith in w a lk i ng
di stan ce o f t he down t own .
Assoc iate d p icn ic f ac ilit ies nea r t he ca pit o l sho uld be also
be provided as an i m p o rt ant v isi to r ame nit y. Publi c land
alo ng th e no rth side o f th e Ca p it o l Str ee t wes t to t he
gove rno r 's m a nsio n cou ld be redesig ned t o sat isf y thi s
acknow ledge need .
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PRESERVATION
The preservat ion protection and rehabilitation of architec-
turally and hi storica ll y sign if icant buildings has become a
concern of f ar-reac hin g nati o nal significa nce. Motivated by
a commi t ment to maintain a st rong awareness of our
cult ural heritage, co mmunities al l ac ross the coun try are
moving toward str icter con tro ls on new development where
demolition o f sign ifi ca nt o ld er buildings is involved. In
some c 1t1 es, such stru c ture s are afforded "land mark" status
and cannot lega ll y be a lt ered o r ra zed .
Preservation is a l so a matter of federal policy and
buildings o f hi storic import are listed in the National
Regis ter o f Hi sto ri c Pl aces. However, a listing in the
Register does not necessarily protect l andmarks from
demolition. The Reg i ste r is, furthermore, not inclusive.
Fo rtun at ely, the four Jefferson City buildings li sted in the
Register--the state capito l , the governor's mansion,
Lohman's Landing, and the Co le County Hi st orical Society
are ei th er publicly owned or the property of a non-profit
orga ni zat ion. Th e 1974 Supp lement also li sts the Co le
County Courthouse.
Many o f J efferson City's most inte resting bui ldings are
c lus t ered i n the vicinity of Hi gh S treet. In d ividua ll y, they
are reminders o f the styles and tastes of past eras .
Col lective ly, they make High Street unique in Jefferson
Cit y . The record of the past, howeve r, has not trea ted
these fi ne o ld buildings kindly. Debilitating signage and
se lf -defeating face -lifts executed in the name of
mode rni zation have not produced the desired ef f ect .
Inconsistent, frequently competing styles have detracted
fr om the street's orde rli ness and visual unity; and the fine
detailing that may ex ist behind aluminum facades is long
forgotten and removed from public view. The remova l of
cosmetic facades and restoration of or iginal detailing, if
app li ed to the three b lock retail area, wou ld contribute
substantia ll y to the beautification effo rt.
54
Cole County Courthouse, before renovation .
Cole County Courthouse, after renovation.
Fountain of the Centaurs, cap itol grounds
55
HIG H ST REE T MA LL
One as p ect o f our nearly univ e r sa l dependence o n
a uto m ob i les is that th e sc ie n ce of planning automotive
traffic sys tem s has become a very sophisticated pro cess.
Concomitantly, planning for p edest rians ha s become
somet hing of a los t a rt. High Street affo rd s Jefferson City
an opportun ity to plan for pedestrian amenity so as to
inc rease the vitality a nd attractiveness of the commun ity's
principal shopping street. Whi le the p lan described in these
pages seeks to en han ce th e pedestrian milieu, it implicitly
recognizes that it is desirable t o m aintain an effect ive and
eff icien t traffic network as w ell .
56
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Auto access onto a nd off of High Street and to
assoc iat ed parking a reas must be plann ed very ca refully.
Th e principal objective i s to render the system
und ersta nd a bl e and to reduce the co nfu sion which wil l
resu lt if th e prop osed redeve lopme nt of the heart of th e
Ce ntra l Bu siness Di s tri ct i s not accompa nied by the
redeve lopme nt an d reorganization of the ex isti ng system of
t raffi c signage a nd lane m a rk i ng s. In addition to the
se l ect i on and pl ace m e nt of sig n s i ntended to d ir ect
motorists t o parking a reas, means must be devised to
ensure the unres tri c t ed fl ow of traffic on High Street,
subse qu ent to th e impl e mentation of th e re co mme nded
planting program with its proposed mid -blo c k pedestrian
c ross ing .
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TYPICAL STREET TREAT MENT
Rather than a continuo us pedestrian mall, it is proposed
that, in p laces, the sid ewa l k be extended into ex1st1ng
parking lanes . These s id ewalk extensions would have a
paved brick surface tha t would su rr ound raised planter
boxes co ntaining shade trees . Ground cover would be
used at the ba se o f each tre e. Appropriate street furniture,
in c luding benches and trash re ce pta cles, would be
provided Te xt ured paving mate ri als would be ut il ized at
midblock crossing points . Acco rd ing to the proposed plan,
approx im ate ly half o f the a rea now occ u pied by on-street
parking spaces along High Street would be converted to
pedestrian use. However , existing traffi c lanes would be
unaffected, allowing for unimpeded traffic flow .
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58
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59
LIBRARY PARK
The potential uti lization of the Thomas Jefferson Library
grounds as a visual entry to the shopping district and
passive recreational space has already been suggested. This
proposal envisions a special paving treatment beneath
benches, and other street furniture including trash
receptacles and drinking fountains . Specia l lighting
treatment would extend utilization into evening hours.
Planted areas would punctuate the space and give it
te x ture and definition . Broadleaf shade trees are
recommended in conjunction with flowering deciduous trees
such as magnolias and lilacs . Ground area would be
planted with mi xe d flowering deciduous and evergreen
shrubs.
Special attent ion is to be directed to the bus stop at the
co rner of Adams Street where sight lines need to be
maintained between sitting areas and the westbound traffic
lanes of High Street .
UBRARY ~ I &L 2 I .. C
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Proposed library park improvement
60
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PASS -THROUGH PARKS
The identification of the library site and capitol grounds as
the eastern and western anchors of the retail district
suggests that intermediate public spa c es be designed for
pedestrian use . A small park connecting High Street to
the parking area north of the commercial frontage in the
block between Madison and Monroe Streets could be
c onsiderably upgraded through landscape improvements .
It is suggested that the major part of the site area be
given over to planters with flowering deciduous and
evergreen shrubs, and small shade trees . Enclosing walls
would be treated with clinging vines . The paved surface
should also be upgraded with a warm toned textured
surfacing material.
.&. Existing pass through park,
proposed improvements ~
61
PARKING LOTS
Landscape treatment can make a substantial contribution in
upgrading one of the most neglected elements of the
urban landscape --the parking lot. The landscape program
for four lots in the Central Business District is intended in
part as a demonstration of the versatility of landscaping,
with the expectation that the desirability of similar such
treatment in o~her areas will become evident.
Parking lot landscaping has as its intent the modification
of the visual impact of the automobile the tempering of
the micro-environment, and the definition and containment
of space .
The tree planting program should recognize the benefits of
providing shade, but care should be taken in selecting
trees that do not exude sticky sap, as the maples do .
Planted strips should be developed between sidewalks and
lots to define the lot space and separate it from the
street space. Deciduous shrubs should be utilized for this
purpose. Attention to pavement surfaces and curbstones
around in-lot planting can add to the overall quality of
the lot area .
One challenge of a planting plan to is to provide
abundant greenery without reducing the usable parking
area . Another is to provide attractive screening to reduce
visual access to parking lots from adjacent properties and
pedestrian areas .
62
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Existing parking lot, High Street between Monroe
and Adams Streets ~
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PLANTED BUFFERS
One of the major advantages of planted or walled buffers
is that they break large areas into smaller, self-contained
spaces of human sca le. From the standpoint of urban
design, a great variation in tone, spirit and scale in
exterior urban space i s a major physical development
objective It is, after all, the mixture of large and small,
active and passive, intimate and open spaces that brings
texture, life and interest to a c ity . The containment of
parking areas is but one aspect of a comprehensive center
city planting program. "People spaces" are much more
comfortab le when separated from the inescapable presence
of automobiles.
As a rule, shrubs and walls used to define space should
not obstruct sightlines of standing adults, but this rule has
a variable application. Depending on the atmosphere that
is to be created, separation of spaces should allow for
the establishment of an immediate sense of orientation at
the moment it is sought. Buffers, therefore, should define
space, but not encapsulate it.
64
STREET TREE PROGRAM
Trees bring beauty to the ci ty scape and serve to sustain
ou r contact with nature. Most peop le, however, are not
aware of th e fun ct ional utility of trees and do not realize
that tree planting programs can be aimed, quite
systematica lly, at fulfilling functional objectives In addition
to stimulating the environment with seasonal changes of
color and fragrance, trees can be utilized to co ntrol glare,
deflect noise and direct pedestrian traffic flows. Trees can
also modify local c lim atic conditions by creating pockets of
cooler air beneath spreading summer leav es, and permitting
the warming rays of the sun to pass through barren
winter branches .
Street tree plan : different spec1es create order and identity. •
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80 '
70'
40'
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10 '
TREE PALLETTE
Tr ees can a lso cont ribut e to th e id entification o f p la ce .
When trees of one species are planted along one street,
it becomes associated with that type o f tree. Similar
treatment, with diffe rent trees, on other streets, en hances
local distinctiveness and adds an e lement of richness to
the texture of the city .
Tulip Tree Honeylocust
66
The Jefferson City trees planting program seeks to
beautify the streetscape, modify the env ironment and bring
ident ity to the compone n t e lements of the urban sys tem .
It is recommended as part of the c ur ren t p roposal th at
the Jefferson City En v ir onmenta l Quality Commission
conside r publishing a guide t o pr ivate landscaping , to be
distributed to homeowners and bu sinessmen in the f orm o f
a how-to -do-it manual.
Little Leaf Linden Norway Maple
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High Street, after.
68
H IGH STR EET
The "Skyline" variety of Honeylocust (Giedistsia triacan-
thos), a tree of medium height and spread, is proposed
for placement on High Street in areas where the sidewalk
is to be extended into the existing parking lanes . The
tree's fine foliage produces a spectrum of green shades in
bright sunlight and will add considerab ly to the visual
texture of the street. In conjunction with sto re front
awnings, the shade cast by the Honeylocust can
considerably upgrade pedes tri an comfort and amenity and
attract shoppers into the area from nearby employment
concentrations .
CAPITOL AVENUE
On Capitol Avenue, the tulip tree (Liriodendron tulipfera ) is
recomme nded . Fast growing and disease resistant, this tree
changes with the seasons: flower-bearing in spring, lush
green in summer , clear bright yellow in autumn, denuded
in winter. Views of the capitol dome from the east will
be framed by the trees' elegant profiles A regular spacing
is proposed .
Capitol Avenue , after.
69
_.......J
Monroe Street , before
MONROE STREET
The fastest growing American oak, the northern red oak
(Quercus borealis), should be planted along Monroe Stree
Characterized by its distin ctive red -brown autumn color and
its broad shapely crown, the red oak will bring vertical
and, at upper levels, horizontal definition to the street
space.
70
Monroe Street, after
JEFFERSON STREET
A fa st growning and highly adaptable tree, the Norway
maple (Acer platanoides), is proposed for planting on
Jefferson Street. The tree's full summer foliage is
comp lemented by delicate yellow-green flowers in spring
time and thin pale gold leaves in fall. Uniform spacing is
recommended .
Jefferson Street , before Jefferson Street, after
71
moo,...... ..
�1
-
MADISON STREET
Madison Street terminates at a promising overlook location
with excel lent views of the bluffs on the opposite side of
the Missouri River flood plain . The London plane tree
(Platanus acerifolia) is recommended for planting along
Madison. An unusually hearty tree (several good specimens
are already located along the street) with extravagant
branching and a co lorful bark, the London plane will bring
stateliness to the street and provide it with visual depth .
'"'~m~
Madison Street. before
Madison Street, after
73
Where Madison Street reac hes the top of th e bluff, a
river overlook is proposed . To sustain views of the river
and the distant bluffs, it is re commen ded that no trees be
planted at the foot of the street. Rather, an intensiv ely
developed pede strian space with appropriate street furniture,
low lying deciduous shrubs and special paving treatment is
proposed.
0<1eV1d exi5tl~
'(OW of~ O'v1 -----• MMi~Vl ~trwr ~
1o1W--~k
74
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c.dwLfovt'able. ~~
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&rirub ~ pmvide
t)tt~tlve-jo~Yz:Jund 10
/ view of ~ rwer--.
~
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8
c
c
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0 a. a.
0
c co
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0
0
~ > 0
w
~
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~
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PART Ill: IMPLEMENTATION
IMPLEMENTATION
SUMMARY
Ordering Of Priorities
Implementation Strategy
Page
78
79
86
87
IMPLEMENTATION
To a considerable extent, beautification objectives can be
achieved w ithout expending large sums of public money
on specific improvement projects. Beautification needs can
also be served through changes in the procedures of
stan ding publi c agencies and bodies, and by the adoption
thr o ugh the l egis lativ e process of various regulatory
ordinances.
Costs of capital improvements can be borne by a variety
of public agencies or by private interests .
Public policies and pro ced ural and legislative remedies must
closely follow a set of articulated princip les which are to
be cons idered as axiomatic in the overall beautification
program. The following are proposed:
PRINCIPLE 1:
PRINCIPLE 2:
PRINCIP L E 3:
PRINCIPLE 4:
PRINCIPLE 5:
78
With respect to urban systems, func -
tional eff ic iency and beauty are not
mutually exclusive . Functional objectives
can be fulfil led within a context of
design excellence.
Pub lic review of pr ivate development
and construction must have as its
basis published standards and guide-
lines .
Trees and shrubs in the city improve
the physical environment and upgrade
the visual environment.
The legitimate objectives of historic
preservation must not be ca r elessly
sacrificed to economic determinants.
Planning for pedestrians is as important
as planning for automobiles.
PRINCIPLE 6:
PR INCIPLE 7 :
PRINCIPLE 8 :
Overhead wires, display signs, and
billboards competing for attention pol -
lute the landscape and are sel f -defeat-
ing . Controls on signs enhance the
landscape and do not p l ace un d ue
constraints on business .
Good landscaping depends on
uous maintenance efforts and
ate staffing of pub lic agencies .
contin-
appropri-
The common good demands public
control of land use and development .
SUMMARY
The following is a summary of the beautification objectives
and implementation proposals contained in this report. Each
is intended to respect the underlying principles as listed
above, and each is associated with a letter indicating the
likeliest method of implementation : (P) procedural (L)
legislative (C) capital expenditure .
This listing may also be considered as a check list and
as such can be used to keep this report up-to-date as
implementation activity progresses.
As before, the organizational basis of these proposals are
the physiographic component areas as descr i bed on page 16
I. R-1 Zone: River and River Edge
DA.
D
DB.
D
Maintain natural condition of river bank.
1. Enact river bank protection ordinance
that :
a . Prohib i ts removal of vegetative
cover within 20 feet of water; and
b. Prohibits construction of artificial
retention walls or breakwaters
except at public pedestrian access
points.
Ban development that subjects new construc-
tion to perils of natural river cycles.
1. Enact ordinance to regulate construction
on sandbars that:
a .
b .
Allows for flood stage flow ; and
Does not create artificial islands
requ1r1ng construction of man-made
retention walls or levees .
D C. Increase public access to river .
D 1. Plan major river access in conjunction
with redevelopment of Lohman 's Land-
in g .
II . R-2 Zone : Flood Plain
DA. Bring flood plain within municipal jurisdiction
of Jefferson City.
D 1. Annex flood plain .
DB. Limit development on flood plain.
CJ 1 . Zone for agricultural and recreational use.
Ill H-Zones : Highways
oA.
D
D
DB.
D
D
Landscape public rights-of-way .
1. Plant native shrubs and trees where soils
permit.
2. Plant crown vetch where soils prohibit
major plantings.
Commercial and industrial uses on the roadside
should be shielded from view .
1.
2.
Commercial zoning ordinance should be
amended to require planted buffer on
sight lines between major highways and
commercial and industrial development .
Junkyards zoning should require shielding
enclosure and/or planted buffers on all
sides .
79
De.
D
D D .
D
D
D E.
D
D
D F.
80
Billboard advertising oriented to major approach
highways should be phased out.
1 . Erection of new billboards should be
banned. All existing billboards should be
removed within a reasonable period of
time.
Signalizat i on should not have a blighting
effect.
1 . Along all highways and city streets
signage should fu lfi ll Manua l of Urban
Traffic Control Devices standards, but
where possible, total number of support
fixtures, poles, etc. should be reduced
to an absolute minimum .
2. Standard international style pictorial signs
should be substituted for word signs,
wherever possible .
Roadside development should respect views of
the capitol .
1.
2.
Where possible, legal height lim its for
new structures should be set to
preserve sight lines between approach
highways and the capitol dome.
Breaks in sight lines in approaches to
ci ty should be caused by stands of
trees, to add interest to the sequence
of travel.
Overhead wires along highways should be
relocated in underground conduits.
D 1. New wiring, public and utility should be
placed underground .
D 2 . Existing overhead wiring should be
phased out over time.
D G. Buffers of separation between incompatible
land uses should be required in the local
zoning ordinance .
D 1. Where a proposed development abuts a
zone of pre-existing incompatible land
use, buffering should be provided by
the developer of the newer parcel.
D 2. New development along highways should
provide for landscaped buffers that
would sustain the quality of views from
the highways, so that large continuous
walls, junkyards, quarries and heavy
industry would be removed from view
along major public rights-of-way.
IV . C-1 Zone : Missouri River Flood Plain Bluffs, North
Side
D A. Do not break the continuous vegetative cover
on the bluff crest.
D 1 . Al low no construction t hat would be
visible from the proposed Madison
Street overlook .
D B. Maintain the tree-sky line along the bluffs.
D 1. Ban new construction which rises above
the tree-sky line .
o c.
D
Extend municipal control over bluffs .
1. Annex bluffs.
V . C-2 Zone: Development on Flood Plain
D A.
D B.
D e.
D
D
D
Enforce highway regulations (Ill) along Route
54 .
Promote st rict building code enfo rceme n t.
Prov i de easy access f r orn M i ssouri River
Bridge to the capitol
1 .
2
3.
Place sign at north end of bridge
announcing "Capitol-Next Exit".
Upgrade exit ramp .
Provide signage between highway exit
and capitol grounds to direct motorists
to capitol .
VI . C-3 Zone : Capitol West Renewal Area
D A.
D
D
D
Landscaping plan should be included as part
of overall proposal.
1.
2.
3 .
Each street should be associated with
one species of tree .
All wiring should be relocated under-
ground .
A uniform design style for street
furniture should be adopted .
CJ B .
D e.
D
D
D
Controls on bui ld in g hei ghts sho uld resp ec t
capitol dominance .
Design a d irec t ed approac h t o th e capitol
from the Missouri River Bridge .
1.
2.
3 .
Maintain pedestrian scale in massing of
bu ildi ngs.
Re m ove obstructions in sigh t l ines to
Capitol
P r ovide t ext u re in the sequence of
travel.
VII . C-4 Zone : Missouri Boulevard
D A.
D B.
D
D
D
D
The Missouri Boulevard proposal as completed
by Urban Program mi ng Corporation of A m erica
is recommended for full implementation.
Visual and operational improvement should be
promoted .
1 .
2 .
3 .
4.
Separate parking a r eas with planted
buffers .
Consolidate
groupings.
businesses in discrete
Reduce and consolidate signage.
Remove intrusive uti lity lines .
VI II . C-5 Zone : Industry Along Rail Spur
D A. Commercial beautification should be promoted .
81
D 1.
D 2.
Zoning incentives should be offered to
businesses that plant landscape buffers.
a . Additional lot coverage .
b. Setback variations.
Industrial buildings should have one
landscaped facade and screened equip -
ment yards.
IX . C-6 to C-9 and C-11 Zones: Residential Districts
D A .
D
D
D B.
D
D
82
Landscaping should be provided in new
residential areas .
1 .
2.
Tree planting should be provided on
public rights-of-way.
Overhead wires should be placed under-
ground.
Physical regulations in the zoning ordinance
should be succeeded by performance standards
to encourage greater variety in land develop-
ment practices.
1 .
2.
Standards should pertain to :
a . Light
b. Privacy
c . Access and egress
d. Personal safety
Jefferson City should enact
Unit Development ordinance
scape requirements .
a Planned
with land -
D 3 .
D 4 .
Land scaping requirements should:
a.
b.
Promote st reet systems that re-
spect natural contours .
Preserve existi ng trees .
c . Facilitate common or public owner-
ship of open land.
Offer incentives for cluster development.
X . C-10 Zone: High Street and CBD
DA.
D
D
D
Architectural control should establish uniform
standards for environmental quality.
1 . The capitol should be the tallest
building .
(This is ens ured by the height regulations
Jefferson City's (Section 5) contained in
current zoning ordinance .)
2. Buildings should not obstruct views of
3 .
bluffs from intersections along High
Street.
a. No construction should be allowed
on publ1c rights -of-way north of
High Street.
Non buildings, such as relay towers, etc.
may be taller than the capitol if their
visual impact is minimized . Signage and
unneeded lights should be prohibited .
D 4 .
D 5.
D 6.
D
The architectural character of High
Street should emulate its pre-eminent
com mercial role .
a. The ground levels of new build-
ings should establish a firm visual
relationship with exterior pedestrian
space .
b . New buildings should res pect the
scale of the street.
An active preservation effort should be
inaugurated:
a. To identify historically significant
buildings .
b . To identify architecturally significant
buildings .
"Face-lift" modernizations should be
controlled to the extent possible in
order to:
a . Preserve desirable architectural de-
tails.
b .
c.
Ensure a uniform
for the facades
buildings .
design quality
of individual
Enact sign control ordinance that
requires :
1) Cornice lines to be totally
unobstructed.
D B .
D
D
D
CJ c.
D
D
D
D
2) All windows above grade
level to be unobstructed
(by signs).
Future development possibilities should be
anticipated.
1 .
2.
3.
A redevelopment study of Lohman's
Landing should be undertaken .
a. The building must be preserved.
b. Public use is to be the primary
objective.
The city should go on record as
favoring the relocation of the Missouri
Pacific ya rds from below the bluff to
encourage future public use of the river
edge .
Overhead wires should be banned in the
Central Business District.
Promote a comprehensive central area land-
scape plan, incorporating an attitude ca lling for
expanded amenities.
1. Adopt High Street Mall Plan (page 56)
2. Adopt Madison Street overlook plan
(page 74)
3 . Adopt Jefferson Library site redevelop -
ment plan (page 60)
4. Related capitol grounds parking develop-
83
D
D
D
5.
6.
7 .
ment to pedestrian accessibility on High
Street.
Adopt central area tree program (page
64).
Adopt landscape standards for parking
lots (page 62)
Adopt proposal for landscaped pass-
through park (page 61).
X I. C-12 and C-13 Zones : Open Space and Lincoln
University
D A.
D
D
DB.
D c.
D D.
84
Ex pand city wide pedestrian and bicycle
amenity .
1.
2.
Create bicycle linkages among parks and
other public open spaces .
Develop plan for bicycle path on bluff
edge .
Promote natural environments in public parks .
Establish forest preserves on the edge of the
city, where future development would be
banned .
Adopt development controls to ensure pro-
vision of amp le public open space in newly
developed areas, subject to prior review and
approval before issuance of construction
permit s.
XII .
D
D
D
LJ
D
D
D
X III.
General Provisions
A . Establish and enforce landscape standa rd s for
all publicly owned parking areas .
B. Jefferson City should exercise zoning powers
(within 2 miles of the city limits) to control
signs.
1 . No sign should be permitted that
extends more than 25 teet above street
level .
2. Standards for placement should apply
equally to painted and attached signs .
3. Coloration of non -buildings (water and
relay towers, et c.) should be c ontrolled
and limited to subdued compatible hues.
4 . Billboards may be permitted in com -
mercia I and industrial areas with stan -
dard format and controlled p lacement .
C. Landscape standards shou l d apply to all
parking lots whether or not related to specific
buildings .
Administrative
D A .
D
Create a design review committee that would :
1. Coordinate purchases of public exposed
equipment (street furniture, traffic control
devices , etc.) to ensure a uniform
design quality .
D
D
D
D
D
D
D
D
D
D
B .
C.
2.
3 .
4 .
5.
6 .
7 .
8 .
9 .
Coordinate city wide beautification acti-
vity.
Evaluate landscape aspects of develop-
ment proposals .
Oversee Lohman's Landing redevelopment
study and historic preservation activity.
Consider changes in landscape objectives
and standards over time.
Review design aspects of public works
projects, including urban renewal.
Maintain professional consultation and
liaison in des ign review process.
Disseminate information .
Promote voluntary landscape commit -
ments from the business community.
Hire a city forester to maintain publicly owned
landscaped areas.
City parking funds should be a ll ocated to
landscape and beautification activities .
85
ORDERING OF PRIOR IT IE S
In order for this beautif ication plan to have the most
significant and immediate impact , it is of the highest
priority to implement the greatest number of improvements
within the smallest area, and order additional proposals on
the basis of proximity to the intitial impact area . For this
reason, and since High Street enjoys a visual prominence
unmatched by other streets in Jefferson City, the
implementation of the quasi -mall, with its shrub and tree
plantings, street furniture , signage, and sidewalk re const ru c-
tion must be of the first order business .
At the next level of priority is the implementation of
proposals affecting areas immediately adjacent to High
Street--the Thomas Jefferson Library grounds and the
pass-through park west of Monroe Street--with the
simultaneous landscaping of the parking area to which it
connects . Street trees are to be of the next o rder of
priority, with plantings on Madison Street to come first in
order to foster the creation of the overlook . Planting of
trees along the other streets crossing High Street would
be of the next prrorrty leve l w ith planting on streets
paralle l to High Street to follow. Since capital expend iture ~
and legislative commitments are of the essence in bringing
these plans to realization. the need for immediate action
in the area of publicity and political action is clear.
Regardless of the political and economic considerations
which may be involved in the appropriation of public
funds for specif ic public improvements, th e simultaneous
implementation of additional plans dependent only on a
reorientation of the policies of functioning public bodies
must also be pursued in order to maximize the impact of
this beautifi ca tion proposal in the broadest geographi ca l
sense.
86
Beyond immediate cons id erations of cha nges in public
policies that would further the goals outlined in this
report, once enabling legislation has been passed to
support programs and expenditures needed to bring to
realization proposals for High Street and adjacent areas,
legislation and funds needed to improve highway
approaches and beautification proposals for Missouri
Boulevard should be pursued .
IMPLEMENTATION STRATEGY
It can be very difficult to implement proposals for a mall
in any city. Yet, since the pioneering effort of Kalamazoo ,
Mi c higan, numerous c1t1es of all sizes nationwide have
c reated malls of various types in their downtown business
di st ricts. For the most part, these malls were financed
with public and private participation and, almost without
exception, the results have been more than pos i t ive:
increased retail sa le s ranging up to 111 % (Knoxville,
Tennessee, after 5 years); expanded pedestrian traffic up
to 70% (Pomona, California, fir st year); provoked
substantial investment in re m ode ling and new constru ction
(in Fr esno, California, $40,000,000 was invested with in 3
years of the mall's opening); increases in property values
(and property taxes); and significant declines in vacancies.
In addition to these economic benefits, environmental
improvements have been abundant, with reduced conges-
tion, noise , and air pollution and improved pedestrian
safety .
The two fundam e ntal requisites needed f or successfu l
implementation are legal powers and money . Fo r
muncipalities, which derive their powers from state
governments, the legal powers required to implement a
proposal of this type are a matter of state law, and must
be researched from a legal standp oint. In some states,
municipalities can create spec ial taxing districts to advance
public improvements of this type . Oftentimes, increased tax
collections realized through spec ial assessments are utilized
t o retire reve nue bonds issued for construction purposes.
Th e development strategy for the High Street mall is
obv iou sly co nsiderably d ependen t upon the legal powers of
Mi ssour i municipalities and require s a professional legal
evaluat ion .
The second critica l implementation e lement--money--parti -
cularly where it involves imp osing an addi tion al burden on
merchants and co mmercial property owners may be very
difficult, if not impossible, to raise unless solid economic
evidence exists that clearly demonstrates that added profits
or rental returns more than offset the additional financial
burd en that may be imposed. The success of a project of
this type , therefore , also depends upon a professional
economic evaluat ion of this fiscal potential of such plans,
matching projected cos t s with anticipated returns . The plan
a lone cannot succed without sound lega l and economic
ba ses.
87
PART IV: TECHNICAL APPENDIX
This section contains design details for the landscape and
beautification proposals presented in this study . The need
for standardized design details cannot be over-emphasized,
if overall visual continuity is to be achieved and
consistency maintained in the execution of subsequent
beautification programs. It is equally important that the
comprehensive beautification program be viewed as a
continuing process, a process that in essence encompasses
all future developments in Jefferson City, and that points
of reference be established in order to maintain a
consistent style .
It is strongly recommended that the Commission on
Environmental Quality monitor through a review process
future developments in both the public and private sectors
to ensure compliance with the pallete of details illustrated
in the Technical Appendix . It is also recommended that
consideration be given to the City Council's formally
adopting the design recommendations and bringing their
implementation under the jurisdiction of the office of the
city engineer.
D
D
D
D
D
D
D
D
D
D
B .
C.
2.
3 .
4 .
5.
6 .
7 .
8 .
9 .
Coordinate city wide beautification acti-
vity.
Evaluate landscape aspects of develop-
ment proposals .
Oversee Lohman's Landing redevelopment
study and historic preservation activity.
Consider changes in landscape objectives
and standards over time.
Review design aspects of public works
projects, including urban renewal.
Maintain professional consultation and
liaison in des ign review process.
Disseminate information .
Promote voluntary landscape commit -
ments from the business community.
Hire a city forester to maintain publicly owned
landscaped areas.
City parking funds should be a ll ocated to
landscape and beautification activities .
85
ORDERING OF PRIOR IT IE S
In order for this beautif ication plan to have the most
significant and immediate impact , it is of the highest
priority to implement the greatest number of improvements
within the smallest area, and order additional proposals on
the basis of proximity to the intitial impact area . For this
reason, and since High Street enjoys a visual prominence
unmatched by other streets in Jefferson City, the
implementation of the quasi -mall, with its shrub and tree
plantings, street furniture , signage, and sidewalk re const ru c-
tion must be of the first order business .
At the next level of priority is the implementation of
proposals affecting areas immediately adjacent to High
Street--the Thomas Jefferson Library grounds and the
pass-through park west of Monroe Street--with the
simultaneous landscaping of the parking area to which it
connects . Street trees are to be of the next o rder of
priority, with plantings on Madison Street to come first in
order to foster the creation of the overlook . Planting of
trees along the other streets crossing High Street would
be of the next prrorrty leve l w ith planting on streets
paralle l to High Street to follow. Since capital expend iture ~
and legislative commitments are of the essence in bringing
these plans to realization. the need for immediate action
in the area of publicity and political action is clear.
Regardless of the political and economic considerations
which may be involved in the appropriation of public
funds for specif ic public improvements, th e simultaneous
implementation of additional plans dependent only on a
reorientation of the policies of functioning public bodies
must also be pursued in order to maximize the impact of
this beautifi ca tion proposal in the broadest geographi ca l
sense.
86
Beyond immediate cons id erations of cha nges in public
policies that would further the goals outlined in this
report, once enabling legislation has been passed to
support programs and expenditures needed to bring to
realization proposals for High Street and adjacent areas,
legislation and funds needed to improve highway
approaches and beautification proposals for Missouri
Boulevard should be pursued .
IMPLEMENTATION STRATEGY
It can be very difficult to implement proposals for a mall
in any city. Yet, since the pioneering effort of Kalamazoo ,
Mi c higan, numerous c1t1es of all sizes nationwide have
c reated malls of various types in their downtown business
di st ricts. For the most part, these malls were financed
with public and private participation and, almost without
exception, the results have been more than pos i t ive:
increased retail sa le s ranging up to 111 % (Knoxville,
Tennessee, after 5 years); expanded pedestrian traffic up
to 70% (Pomona, California, fir st year); provoked
substantial investment in re m ode ling and new constru ction
(in Fr esno, California, $40,000,000 was invested with in 3
years of the mall's opening); increases in property values
(and property taxes); and significant declines in vacancies.
In addition to these economic benefits, environmental
improvements have been abundant, with reduced conges-
tion, noise , and air pollution and improved pedestrian
safety .
The two fundam e ntal requisites needed f or successfu l
implementation are legal powers and money . Fo r
muncipalities, which derive their powers from state
governments, the legal powers required to implement a
proposal of this type are a matter of state law, and must
be researched from a legal standp oint. In some states,
municipalities can create spec ial taxing districts to advance
public improvements of this type . Oftentimes, increased tax
collections realized through spec ial assessments are utilized
t o retire reve nue bonds issued for construction purposes.
Th e development strategy for the High Street mall is
obv iou sly co nsiderably d ependen t upon the legal powers of
Mi ssour i municipalities and require s a professional legal
evaluat ion .
The second critica l implementation e lement--money--parti -
cularly where it involves imp osing an addi tion al burden on
merchants and co mmercial property owners may be very
difficult, if not impossible, to raise unless solid economic
evidence exists that clearly demonstrates that added profits
or rental returns more than offset the additional financial
burd en that may be imposed. The success of a project of
this type , therefore , also depends upon a professional
economic evaluat ion of this fiscal potential of such plans,
matching projected cos t s with anticipated returns . The plan
a lone cannot succed without sound lega l and economic
ba ses.
87
PART IV: TECHNICAL APPENDIX
This section contains design details for the landscape and
beautification proposals presented in this study . The need
for standardized design details cannot be over-emphasized,
if overall visual continuity is to be achieved and
consistency maintained in the execution of subsequent
beautification programs. It is equally important that the
comprehensive beautification program be viewed as a
continuing process, a process that in essence encompasses
all future developments in Jefferson City, and that points
of reference be established in order to maintain a
consistent style .
It is strongly recommended that the Commission on
Environmental Quality monitor through a review process
future developments in both the public and private sectors
to ensure compliance with the pallete of details illustrated
in the Technical Appendix . It is also recommended that
consideration be given to the City Council's formally
adopting the design recommendations and bringing their
implementation under the jurisdiction of the office of the
city engineer.
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