MILLCREEK CITY CENTER

MASTER PLAN
ADOPTED 10 JUNE 2019
 MILLCREEK CITY CENTER MASTER PLAN
Acknowledgments
THE FOLLOWING CONTRIBUTED TO THE MILLCREEK
CITY CENTER MASTER PLAN: Table of Contents
Project Steering Committee
Christy Dahlberg Wasatch Front Regional Council 01 Introduction 1.1
Francis Xavier-Lilly Community Development Director Millcreek
Mike Winder Economic Development Director Millcreek
John Miller Engineering - Millcreek 02 Existing Conditions 2.1
Robert May Planning - Millcreek
Erin O’Kelley Planning - Millcreek
Blaine Gehring Planning - Millcreek
03 City Center Plan 3.1

Nicole Lindsay Assistant to the Director of Economic Development - Millcreek

John M. Janson, AICP City Consultant - Millcreek
04 Urban Design 4.1

Millcreek Planning Commission

Millcreek City Council 05 Transportation 5.1
Millcreek Residents and Businesses

Planning Team 06 Phasing and Implementation 6.1

Peggy McDonough President, Architect, MHTN Architects
Ryan Wallace Project Manager & Urban Designer, MHTN Architects
Dan Smith Planner & Landscape Architect, MHTN Architects
07 Appendix 7.1

Lindsay Johnson Planner, MHTN Architects

Amanda Dillon Community Planner, MHTN Architects
Jordan Hogenson Visualization Specialist, MHTN Architects
Mark Morris Placemaking Specialist / Urban Designer, VODA
Jeff Alls Urban Designer, VODA
Benj Becker Zions Public Finance
Maria Vyas Transportation Planner, Fehr & Peers Transportation Consulting
Tim Baird Transportation Planner, Fehr & Peers Transportation Consulting
AJ Shaffer Civil Engineering, Ward Engineering
01 INTRODUCTION MILLCREEK CITY CENTER MASTER PLAN

A. PLAN OVERVIEW
The Millcreek City Center Master Plan These decisions addressed concerns
provides a more detailed vision for the of longtime residents by finding the
City Center concept, that was suggested appropriate mix of housing, commercial, and
in the General Plan. It considers how the public spaces to support the character of
district between Highland Drive and 1300 the surrounding residential neighborhoods.
East from 3300 South to Elgin Avenue can
incorporate urban design and placemaking Analysis of current travel behaviors in
strategies to promote the creation of an the study area show a lack of walking
Municipal Boundary between identifiable, vibrant City Center, which is and biking. Improved infrastructure
Salt Lake City & Millcreek one of the General Plan’s key goals. The that promotes more active forms of
first key step in this planning process is to transportation may change those patterns.
understand existing conditions and needs to Complete streets that create safer
be addressed in the City Center. environments with a mix of pedestrian,
bike and vehicle accommodations are a
The project area is just under 100 acres, key strategy for promoting change. Well
which includes large expanses of surface designed transportation systems will
parking and aging commercial buildings, play a key part in the success of the City
as well as limited residential uses. Given Center’s adaptability for growth. This type
the potential for infill development, there of investment adds significant value to the
SALT LAKE CITY MILLCREEK are many possibilities to add mixed use surrounding properties, and creates the
development and attract new economic type of public environment that lends itself
opportunity and residents to the City. to development to support the City Center
that will provide value to all of Millcreek.
The expected population growth along the
Wasatch Front anticipates an ongoing need Millcreek hosted community walking tours:
3300 SOUTH
for more variety in housing choice, and one in Holladay and one in Sugar House. The
HIGH
1300 EAST

Millcreek is no exception. In initial meetings intent was to hear from residents, generate
LAND

to create a City Center, residents expressed discussion, and illicit important feedback.
DRIVE

some hesitation about how this new type of These responses helped inform the design
development might impact and encroach team, City, and citizens moving forward in
upon the community’s strong, traditional the creation of a City Center Plan. Learning
Millcreek City Center
neighborhoods and great mountain views. from these and other relevant precedents
Master Plan Project Area
Significant public outreach including two helped generate ideas and define the vision
walking tours and three open houses helped for Millcreek’s City Center.
foster a healthy dialogue about how the
new City Center could be respectful of In order to realize this vision, coordination
these community principles while providing with Salt Lake City concerning potential
N new social, environmental, and economic annexation of a peninsula of land located
benefits to the City. At the final open house along Miller Avenue will be required. This
held in January 2019, neighbors and local would entail revisions to the municipal
Site Overview Source: Esri, DigitalGlobe, GeoEye, Earthstar Geographics, CNES/Airbus DS, USDA, USGS, AeroGRID, IGN, and the GIS User Community

0 100 200 500 1000 businesses were excited about the plan and boundaries creating a contiguous area to
decisions they had participated in creating. implement the City Center Master Plan.

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01 INTRODUCTION MILLCREEK CITY CENTER MASTER PLAN

B. CONFORMANCE WITH THE GENERAL PLAN

Since the beginning of the Millcreek Together inviting, supporting local businesses, attracting
General Plan in the Summer of 2017, more an innovative and adaptive workforce, investing in MILLCREEK TOGETHER: The vision for a City Center was born out of the
GENERAL PLAN 2019 second Vision Theme: Vibrant Gathering Places.
than 2,000 Millcreek residents, businesses and amenities that promote a better quality of life, and
Specifically, the General Plan calls for support
other stakeholders participated in 22 outreach encouraging a range of business sizes and types.
The City Center would be the highest of a City Center as the heart of Millcreek to
opportunities throughout the planning process.
4. GREAT CONNECTIONS concentration of development found anywhere give residents a centralized citywide gathering
Four major phases of the planning effort were
in Millcreek. It is the focal point for the City, area. The General Plan enumerates the following
supported by stakeholder interviews, public
Millcreek strives to offer a range of pedestrian, the center of government, cultural, office, strategies for its City Center Goal:
meetings, community events, and other outreach
bicycling, transit, and vehicle transportation commercial, financial, transportation and
efforts. The first phase of the process focused
choices through a cohesive network of safe and other activities with a variety of day and night • Continue to refine, adapt, and expand the
on introducing the General Plan process to the
reliable streets and trails that connect all residents activities that attract visitors from throughout Town / City Center Overlay Zone as the City
community and gathering information about
to their destinations. the City and region. Major arterials provide Center develops and evolves.
trends and conditions. The second phase involved
developing overarching vision themes and goals access and the City Center is envisioned
5. HEALTH AND ENVIRONMENT
to have both local and regional transit • Maintain City Codes to support reduced on-
to provide direction for the Plan. Based on input
Millcreek supports environmental and human connections. Pedestrian access and movement site parking, limited parking lot areas between
from Millcreek residents, businesses, and leaders,
health by establishing and protecting open spaces; would be high, and consideration for the public right-of-way and buildings, design
seven Vision Themes were identified which provide
protecting healthy fish and wildlife habitats; pedestrians is paramount. New development elements that enhance visual impressions
the framework for organizing the General Plan. The
providing active transportation options; improving should be sensitive to the context of the from the street, multi-modal access, and the
Vision Themes are:
local water and air quality; improving access to surrounding neighborhoods and districts, and safety and enjoyment of the on-site pedestrian
1. UNIQUE NEIGHBORHOODS nutritious foods; and other sustainable practices. build on the strengths and character of these experience.
established areas.
Millcreek is a City of proud, stable, unique, and 6. OUTDOOR LIFESTYLE • Establish a parking management plan to
emerging neighborhoods that offer a variety of The City Center is Millcreek’s most intense regulate on-street parking that supports
home types, vibrant gathering areas, and access to Millcreek is the gateway to recreation with
development area, envisioned as a regional business patrons and visitors.
quality community amenities. opportunities from the Wasatch Mountains to
center for commerce and culture. The City
the Jordan River, including majestic views of the
Center should evolve into a vibrant, mixed-use This City Center Master Plan implements this
2. VIBRANT GATHERING PLACES mountains, expansive parks, and accessible trails,
area with a range of employment, services, and important General Plan Goal and its strategies.
creeks, and open spaces.
Millcreek’s centers are the heart of community housing. It should be highly walkable and well-
activity, characterized by walkability, unique 7. ENHANCED CULTURE connected by multiple types of transportation
spaces, commercial areas, and character and transit. It should have a balanced mixture
compatible with Millcreek neighborhoods. Millcreek embraces the cultural and demographic of jobs and housing, and contain amenities
diversity of its residents and businesses, and supports that support residents, workers and employers
3. THRIVING ECONOMY and promotes a variety of arts, cultures, and education within the center and also throughout the
opportunities as essential parts of an engaged City. It is also envisioned that the City Center
Millcreek’s economic diversity thrives by being
community and life-long learning. would be a central public gathering place, and
home to many of Millcreek’s entertainment and
cultural institutions. The Center should also
highlight and celebrate historic signage and
landmarks in the area, such as the Villa Theater.

Attribution: Millcreek General Plan, Logan Simpson

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01 INTRODUCTION MILLCREEK CITY CENTER MASTER PLAN

C. VISION AND GOALS

A WALKABLE URBAN PLACE THAT IS ICONIC Millcreek Center DESIGN SHOULD SUPPORT TRANSPORTATION Millcreek Center
ALTERNATIVES
Focusing on pedestrian experience and forming
human-scaled walks and buildings are crucial to Transportation is key in the success of the City
the creation of active public spaces that Millcreek Center’s adaptability for growth over time.
residents will frequently enjoy. This urban space Complete streets with a mix of pedestrian, bike
will help define the City of Millcreek by providing and vehicle accommodation within a single right-
a distinct experience from the nearby Holladay of-way are a necessary component along with
Village Center and Sugar House Central Business planning for future potential transit service in
District. the area. The design will look to integrate these
A walkable mixed‐use lifestyle center options into the City Center to support the needs An engine of population and tax base to help keep taxes low for Millcreek

and desires of a wide variety of users including

Millcreek residents and visitors.
AN AMENITY AND GATHERING PLACE FOR THE
Millcreek Center
WHOLE CITY

RESPECT SURROUNDING EXISTING

Creating a community gathering space for
RESIDENTIAL NEIGHBORHOODS
both large organized events and casual daily
Millcreek Center
interactions is vital to facilitate opportunities for
The community must be engaged and feel
uniting community members. Providing a variety
empowered to participate meaningfully in
of gathering spaces and amenities will help
defining the goals and outcomes of this important
attract a diverse range of community members
project. Their involvement and interaction during
and contribute to its active year-round use by
the planning process is needed to properly
residents of all ages and abilities.
An amenity and gathering place for the whole city address concerns and achieve the desired
outcomes for the new City Center.

AN ENGINE OF EMPLOYMENT, POPULATION, Millcreek Center In the City Center Plan section of this document,

AND TAX BASE TO HELP KEEP TAXES LOW FOR key principles and themes which emerged from
An engine of population and tax base to help keep taxes low for Millcreek
MILLCREEK public involvement, and were later incorporated
into the City Center Master Plan, have been

Providing economic energy and opportunities for identified. For more information please visit pages

the community is critical to the long-term health 3.4-3.5 and 3.20.

of the community. The new Millcreek City Center

is located at nearly the geographic center of the
community and presents a significant opportunity
for employment and tax base in Millcreek.
An engine of population and tax base to help keep taxes low for Millcreek

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EXISTING CONDITIONS
CITY
MILLCREEK CITY CENTER CENTER
MASTER
02
PLANPLAN

March 2 01 9 | PAG E 2.1

02 EXISTING CONDITIONS MILLCREEK CITY CENTER MASTER PLAN

A. EXISTING FRAMEWORK
The Millcreek City Center’s urban framework is The Brickyard commercial area is part of Salt
defined by the long arterial roads of 3300 South, Lake City along with a portion of the Millcreek
Highland Drive and 1300 East. A number of small City Center area between Miller and Woodland
businesses are spread along these roads in strip Avenues. The gap created by this condition SALT LAKE CITY
malls and office parks with occasional older houses presents an obstacle to the City in terms of
and multi-family units. Residential neighborhoods creating a unified City Center, as well as providing
from the 1950’s and 60’s surround these streets utility infrastructure in this area.
and accommodate area residents as they travel
throughout the Salt Lake Valley. The majority of Streets like Highland Drive, 1300 East, and 3300
the growth and development in this area of Salt South are wide and focus on accommodating
Lake County occurred in the years following the vehicular traffic. There are limited sidewalks and
Second World War and reflects typical suburban virtually no bike lanes or other infrastructure
land patterns and reliance on the automobile intended to make it easy for people to avoid ELGIN AVE

that define this period of progress and economic driving if they choose. East of Highland Drive,
development in American cities. the Wasatch Lawn Memorial Park forms one of
the area’s only significant green spaces; parks GUNN AVE
The rigid Salt Lake City street grid maintains major and public open space are lacking. The Mountair
north to south and east to west arterial roads. 1100 Streetscape, which was platted in the 1950’s as
East and 1300 East break their strict orthogonal a traditional open space and a buffer between MILLER AVE.

orientation between 3300 South and 2700 South homes to the east and the Highland Drive BRICKYARD RD.

as they enter the City Center around the Brickyard commercial district to the west, is located along BRICKYARD WOODLAND AVE.
area. Highland Drive crosses the street grid in Highland Drive. Today this streetscape is well
a northwest to southeast diagonal direction. known for its Lilac trees which have become an 3205 SOUTH
This prominent street’s alignment creates an area landmark. Although the streetscape has been
identifiable uniqueness to the surrounding arterial neglected for decades, the City intends to realize
streets and presents the opportunity for interesting and integrate its vision of long-ago to make this an
3300SOUTH
blocks, unlike anything elsewhere in the Salt Lake iconic landscaped feature within the City Center.
Valley. Surrounding residential streets to the south
of Mountair also break the rigid orthogonal pattern The surrounding single-family houses also add to
forming cul de sacs and winding to accommodate the character of the area. However newer, denser
changes in grade and existing natural systems. multifamily housing occurs sporadically and is WASATCH
beginning to become more frequent as cost of LAWN

living rises and housing availability diminishes.

HIGH
1300 EAST
Open Space

L
Residential

AND
Mixed Use
N
Millcreek City Center

DR.
Existing Land Use Context

0 100 200 500 1000

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02 EXISTING CONDITIONS MILLCREEK CITY CENTER MASTER PLAN

B. ASSETS, WEAKNESSES, AND OPPORTUNITIES

WEAKNESSES
ASSETS
Millcreek is well-known for its tight-knit, stable While easy access by car is considered a strength
The Millcreek City Center is located approximately
residential neighborhoods, several of which by many members of the community, it has
in the City’s geographic center. Millcreek values
are located immediately east, west and south resulted in an environment devoted to serving
its commanding views of Mount Olympus and the
of the study area. Much of the development people in cars and not to people walking or on
Wasatch Front, which is a defining characteristic of
within the project boundaries are architecturally bikes. A walk through the study area reveals
the project area and the Salt Lake Valley.
sterile. However, there are several establishments a notable lack of infrastructure devoted to
which have become iconic for their service to pedestrians and cyclists. It is an unpleasant
Residents and others passing through can
the community over many decades. The Villa experience due to the rate of speed of vehicles,
easily access the site, which is located at a
Theatre is foremost among these, having been an resulting road noise and inconsistent and
prominent intersection of several major regional
important community gathering place since 1949, unattractive pedestrian facilities such as sidewalks,
thoroughfares.
and its sign and entrance along Highland Drive are landscaped park strips, overhead lighting or
considered major community landmarks. The new other urban design elements which contribute to
Another distinguishing characteristic of the study
owners have maintained the building, and today it an enjoyable streetscape experience. Billboards East aerial view of Millcreek
area is its unique urban form as compared to many
functions as a rug gallery. Other notable buildings and other visual clutter such as overhead power
other such districts throughout the region. 1300 for people walking or biking who wish to cross
include favorite community restaurants, Tres lines detract from the otherwise pleasant views
East (known as Richmond Street in the project Highland Drive or Richmond Street, creating an
Hombres, and Crown Burger, both located along to the mountains. While the community is known
area) follows the orthogonal street grid which isolated feeling of disconnection. Locals have
Highland Drive. for its connection to nature, the project area is
defines the pattern of the Salt Lake Valley, while been known to describe it as “the island.” Several
bereft of any park or open space which could
Highland Drive cuts diagonally across the ordered bus routes serve the area, providing access to
further reinforce the connection to nature many
network of streets, creating a series of triangular the University of Utah, Downtown Salt Lake, and
Millcreek residents feel is the community’s primary
blocks. The project area exhibits this phenomenon connections to regional fixed rail systems. However
identifying characteristic.
writ large. the bus waiting facilities for these are generally
lacking, creating unpleasant experiences for those
The street grid within the study area is largely
waiting to use public transportation. Details on
disconnected with the grid of the surrounding
current transit service are found on page 2.8.
residential neighborhoods creating challenges

Another condition which quickly becomes obvious

when visiting the project area is the significant
amount of underutilized land which is currently
vacant or used as surface parking. Parking
issues abound for businesses like JoAnn’s and
Tres Hombres. There are a number of forlorn or
dilapidated properties in the area, and a handful of
properties that have long been a target for code
compliance actions. Infrastructure in the area,
particularly stormwater infrastructure is aging
and largely insufficient to meet current needs,
and would require upgrades to accommodate any
significant growth. Meanwhile, across Richmond
Street in Salt Lake City is the Brickyard Commercial
Southwest aerial view of Millcreek
North aerial view of the City Center District, which provides a significant commercial tax
base to that city.

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02 EXISTING CONDITIONS MILLCREEK CITY CENTER MASTER PLAN

C. TRANSPORTATION
OPPORTUNITIES
MAJOR STREETS 1300 EAST (RICHMOND STREET)
The resulting development patterns in the project suggest building upon the history and heritage
of Villa Theatre. The final outcome will likely be Millcreek City Center is defined by three 1300 East is configured as a five-lane cross
area leave much to be desired. However, this current
a layering of these ideas, rich with heritage and arterial roads: 1300 East, Highland Drive, and section (two through lanes and one center
lack of identity provides an opportunity for the City
culture which represent Millcreek. 3300 South. Within the project area, east-west two-way left turn lane) through the project
to draw on other sources of inspiration to generate
connectivity is provided by local streets which area, with a right turn pocket present at
an identity for this district which can serve to unite
Property owners are beginning to show are predominantly disconnected from the the southbound approach to 3300 South.
the residents of Utah’s newest city, which was
significant interest in the project area, having surrounding residential neighborhoods and the Adequate space also exists for off-street
also the state’s tenth largest city at the moment
recognized its easy access and relative proximity Brickyard commercial center. parking on the eastern side of the roadway
it incorporated. The connection Millcreek has to
to desirable urban centers such as Sugar House north of Gunn Avenue. Sidewalks are present
nature is an obvious choice for inspiration for the
and the Holladay Village Center. Several projects HIGHLAND DRIVE on both sides of 1300 East from south of 3300
district. Orienting future development to protect
are already under way, with a few others at South to Gunn Avenue, typically with a park
viewsheds to the mountains and valleys will be Highland Drive is generally configured as a
varying stages of planning and design. The strip between the curb and the pedestrian
crucial. A major fault line runs roughly northwest to four-lane cross-section through the project
opportunity exists to encourage development zone. According to UDOT’s statewide
southeast through the study area. Due to building area, with left turn lanes present at its
which builds upon and recognizes the estimates, 1300 East experiences average
limitation, there is a natural opportunity to create intersection with 3300 South and a right
distinguishing characteristics of the community, annual daily traffic volumes of 18,000 to
open space and highlight this natural feature in the turn pocket in the northbound direction at
while meeting future needs for affordable 20,000 vehicles per day across the study area.
design. Crescent Drive (3130 South). It has a curb-to-
housing and a vibrant urban center. The City
curb width of approximately 50 feet for most
should harness this private sector interest as it Both Highland Drive and 1300 East have
The urban form, a street grid bounded by major of the study area, widening to approximately
creates a more permanent civic space. existing traffic volumes that are at or above
regional thoroughfares, created long, east-west 65 feet at the intersections of Miller Avenue
the approximate capacity thresholds for a
oriented blocks, unique to this region. These and 3300 South. In addition, Highland Drive
three-lane configuration. With approved and
could easily be divided in a north-south direction, is separated from the parallel Mountair Drive
planned new/re-development in the study
creating smaller, more walkable blocks and a by an approximately 30 foot wide vegetated
area we would expect that future demand
more interesting pedestrian environment. Active buffer area.
will only grow, further increasing utilization
transportation connections may be made to the
of the roadway capacity that’s in place today.
McClelland Trail, currently in the planning phases Sidewalks are present on both sides of
However, Highland Drive’s lack of a center left
connection north to Salt Lake along a canal through Highland Drive; however, the continuous rolled/
turn lane reduces the efficiency of its existing
the Brickyard area. Ideas have been discussed which depressed curb condition on the western side
configuration substantially, especially in the
from Miller Avenue to Elgin Avenue results in
context of closely spaced driveways on its
a condition in which the pedestrian zone and
western side. Depending on factors including
vehicle ingress/egress continuously overlap
future increases in demand, any access
with each other, providing a lower degree of
management strategies implemented, and
protection and separation for pedestrians. The
potential diversion of traffic to 1300 East, a
eastern side of Highland also has a large gap
three-lane reconfiguration for Highland Drive
with no sidewalks between Miller Avenue and
and possibly the utilizations of roundabouts,
Elgin Avenue. Sidewalks on both sides of the
might yield similar or better operational
street predominately lack a park strip or buffer
characteristics, while creating more space for
zone.
pedestrian/bicycle amenities. A detailed traffic
study of the proposed reconfiguration will
According to UDOT’s statewide estimates,
take place to identify likely impacts on both
Highland Drive experiences an average annual
Highland Drive and 1300 East.
South aerial view of Millcreek daily traffic volume of 19,000 vehicles per day.

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02 EXISTING CONDITIONS MILLCREEK CITY CENTER MASTER PLAN

3300 SOUTH BICYCLE CONNECTIVITY

Most bus stops within the study area for all three The Salt Lake County Active Transportation
3300 South is configured as a five-lane cross Currently, no dedicated bicycle routes or protected
of these routes consist of signage only, with few Implementation Plan depicts several planned
section (two through lanes and one center two- bicycle infrastructure exists within the study
shelters, benches, waste receptacles, or other bicycle routes in or adjacent to the study area, as
way left turn lane) through the study area. At the area. The Salt Lake County Active Transportation
improvements present. shown on the map below:
intersection with Highland Drive, an additional Implementation Plan and Millcreek’s draft General
right turn pocket is also present for the eastbound Plan recommend several bicycle routes in or
LOCAL AND REGIONAL PLANNING A shared use path from Crandall Avenue to East
approach. West of Richmond Street, a narrow adjacent to the study area, as discussed under
CONTEXT Gunn Avenue approximately half a block west
concrete median is also present. Off-street ‘Local and Regional Planning Context’ below.
of 1300 East, following the Jordan and Salt Lake
parking is not permitted on 3300 South within the
Millcreek’s draft General Plan, Millcreek Together, Canal (as part of the larger Jordan and Salt Lake
study area, as no painted shoulders are present. TRANSIT SERVICE emphasizes the City’s desire to improve Canal Trail planned in Salt Lake City).
Sidewalks exist on both sides of 3300 South with
UTA bus service runs along all three of the major accessibility by walking, biking, and transit. The
widths of 4 to 6 feet; however, most of these
Plan depicts several improvements to mobility and An east-west route on 3010 South and Elgin
sidewalks have little or no buffer zone/park strip streets that define the study area. UTA’s 213 (1300
circulation in the project area: Avenue, constructed mostly as a neighborhood
between the pedestrian zone and adjacent travel East-1100 East) bus runs along 1300 East through
byway/bike boulevard, with a short protected or
lanes. the study area, providing service between the
Recently, the City approved a development buffered bike lane between Highland Drive and
University of Utah and Midvale Center Station. It
agreement for new mixed use buildings along Gunn 1300 East.
According to UDOT’s statewide estimates, 3300 stops adjacent to 3300 South, Woodland Avenue,
Miller Avenue (southbound only), and Elgin Avenue, that will include the creation of a complete
South experiences average annual daily traffic
street, including sidewalks and angled parking, A north-south bicycle route along 1100 East (briefly
volumes of 25,000 to 27,000 vehicles per day Avenue. The 213 bus runs on half-hour headways
along the sections of Gunn Avenue that are being diverting to 1000 East between Elgin Avenue and
across the study area. until early evening on weekdays and Saturdays.
developed. The intersections of Miller Avenue with East Riches Avenue [3190 South]), which would
The 213 does not run on Sundays.
1300 East and Highland Drive are both depicted as take the form of a neighborhood byway/bike
MINOR STREETS locations for pedestrian crossing improvements. boulevard north of Riches Avenue, and a buffered
The UTA 220 bus (Highland Drive-1300 East) runs
The minor streets within the study area primarily A bicycle boulevard is proposed along Miller or protected bike lane south of Riches Avenue.
along Highland Drive through the study area, with
provide east-west connectivity across Millcreek service between downtown Salt Lake City and Avenue, connecting east to Crescent Drive and
City Center and access to businesses and 9400 South. It stops adjacent to 3300 South, Miller Gregson Avenue.
residences located therein. The majority of these Avenue/Crescent Drive, and Elgin Avenue/3010
streets do not connect through to adjacent South. On weekdays, the 220 bus runs on Sidepaths are bicycle paths located next to
neighborhoods, with Elgin Avenue and Miller approximately 15-20 minute headways during AM roadways. A two-way shared use sidepath is
Avenue/Crescent Drive serving as the primary peak hours, 10-15 minute headways during PM peak proposed to run along 1300 East from Miller
direct connections to the residential areas east and hours, and 15-30 minute headways during midday Avenue to 3300 South before turning onto 3300
west of the study area. and evening off-peak periods. Saturday service South and extending westward to Millcreek’s
runs on half-hour headways, while Sunday service boundary with South Salt Lake at 700 East or to a
These minor streets are predominately 28 and runs on hourly headways. proposed buffered bike lane on 1100 East.
34 feet wide (curb-to-curb); Elgin Avenue is
an exception with a curb-to-curb width of The UTA 33 bus (3300 South) runs along 3300 The eastbound and westbound bus stops at
approximately 44 feet. Continuous sidewalks are South through the study area, providing service 1300 South and 3300 East are proposed priority
present on Elgin Avenue and most of Miller Avenue, between West Valley City and Wasatch Boulevard. locations for bus stop enhancements, such as
whereas the sidewalk network has significant gaps The 33 bus stops adjacent to both Highland Drive, shelters. Alongside these specific locations for
on Gunn Avenue, Woodland Avenue, and 3205 1300 East, and approximately 750 feet further east improvements, the General Plan recommends that
South. Additional information about street widths on 3300 South (at approximately 1200 East). The crossing improvements include treatments such
can be found on pages 5.14 - 5.15. 33 bus runs on weekdays on 15 minute headways as high-visibility and/or raised crosswalks, colored
during AM peak, midday, and PM peak times, pavement, bicycle detectors and signal heads, and
(at non-signalized intersections) Hybrid Advanced Salt Lake County Active Transportation
and half-hour headways during weekday early
Implementation Plan and Legend
mornings, weekday late evenings, and weekends. Warning signals.

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02 EXISTING CONDITIONS MILLCREEK CITY CENTER MASTER PLAN

UDOT’s Statewide Transportation Improvement

Program (STIP) lays out a six-year plan for
WFRC REGIONAL highway and transit projects across the state. STIP
TRANSPORTATION PLAN projects planned for this area include a drainage
The Wasatch Front Regional Council (WFRC) improvement and pavement preservation project
Regional Transportation Plan (RTP) depicts major on 3300 South between State Street and Highland
planned transit and highway projects for the Drive, as well as signal improvements for 3300
Wasatch Front region (see Projects Map on the South at 1300 East.
following page). In and adjacent to the project
area, enhancements are recommended for several Transit investments in the Brickyard area have
transit and highway projects: been studied in the past. The Sugar House Phase
2 Alternatives Analysis, sponsored by the Utah
• Operational enhancements are recommended Transit Authority and Salt Lake City, evaluated
for 3300 South (Phase 2) alternatives extending from the current end-
• Operational enhancements are recommended of-line station for the Sugar House Streetcar.
for 1300 East (Phase 1) One alternative studied alignments connecting
• Enhanced bus service/stop improvements are the streetcar to Brickyard shopping center
recommended for Highland Drive (Phase 3) along either 1300 East or Highland Drive. These
• Bus rapid transit service/stop improvements alignments were screened out early on, because
are recommended for 1300 East (Phase 2) they were not as competitive as other potential
• A combination of enhanced bus/bus rapid alignments in meeting the goals outlined by Salt
transit service/stop improvements are Lake City and the Utah Transit Authority; however,
recommended for 3300 South (Phase 2) Millcreek City may have other goals for transit that
are different from those in the Phase 2 Alternatives
Analysis. In light of the proposed new City Center,
a light rail analysis could be conducted that
might result in different recommendations today.
Future redevelopment of the Brickyard could also
increase demand.

WFRC Regional Transportation Plan

A screening matrix from the Alternatives Analysis

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02 EXISTING CONDITIONS MILLCREEK CITY CENTER MASTER PLAN

D. ECONOMICS

IMPROVEMENT VALUES PER ACRE - STUDY AREA AND SURROUNDING

INFLUENCES

Roughly 14% of Millcreek’s overall retail sales occur in the study area

RETAIL MARKET - CONTINUED

For all of Millcreek, retail sales average $52 per Categories of significant leakage in Millcreek
• Map shows low improvement values at the key intersection of 3300 South and 1300 East square foot. At 3300 South and 2300 East, retail include the following:
• Some midblock sites show low improvement values, suggesting redevelopment potential sales average $40 per square foot. At Olympus
• Automobile dealers - $98 million, 3%
Cove, retail sales average $130 per square foot. In
capture
the study area, retail sales average $102 per square
• Gasoline stations - $22 million, 28%
Retail square feet per capita is notably high in foot.
OVERALL MARKET CONDITIONS capture
the region, and is forecast to decline significantly. • Clothing stores - $45 million, 9% capture
RETAIL MARKET: Brickyard Plaza (retail only) has an assessed
Currently near $40 square feet per capita, with • Accommodations - $47 million, 0.3%
value of roughly $36.7 million. It generates nearly
brokers and developers indicating that $15-$20 capture
There is a moderate amount of existing vacancy $575,000 annually directly to Salt Lake City in
square feet per capita is likely more appropriate • Restaurants - $66 million, 48% capture
for retail properties in the study area - roughly property tax and sales tax revenues. Brickyard is
for future years. Retail closest to Brickyard and • Department stores - $114 million, 36%
15 to 20 percent, with month-to-month leases experiencing vacancy issues, and is intended for
the intersection of 3300 South and 1300 East capture
increasing total to potential near-term vacancy long-term redevelopment that will remove some of
has the best possibility of succeeding based on
to 25-30 percent. Retail rents are flat in the study the bigger-box uses.
locational desirability. A City Center design, with Millcreek has a high capture rate (139%) for
area, and will continue as such until vacant space is
entertainment and restaurant draws, could attract According to a recent financial analysis, Millcreek’s grocery stores, which is notable considering that
absorbed or re-purposed.
users to retail options that don’t have frontage on overall sales leakage, as of the start of 2017, Harmon’s is in Salt Lake City and on the boundary
the main thoroughfares in the study area. is noted at 46% (with a capture rate of 54%). of Millcreek. Other grocery users within the city
Roughly $480,000,000 is “leaked” to neighboring attract users from neighboring cities into Millcreek,
communities. offsetting the impact of Harmon’s.

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02 EXISTING CONDITIONS MILLCREEK CITY CENTER MASTER PLAN

OFFICE MARKET:

There is a lack of Class A space in Millcreek, enhanced walkability in the City Center, reducing
and particularly within the study area. Millcreek the need for parking spaces.
has limited professional business space, with Covered parking is feasible for mid-rise office, at
residents indicating that they want more options key sites in the subject area. Parking needs are
to work within their city. Strong demand exists for increasing for office tenants, as employee square
additional office space in nearby markets such as foot needs are declining.
Sugar House, Holladay, and Cottonwood Heights.
Tenants looking in the market are being priced
There is a need for additional medical office space,
out of Sugar House and the I-15 corridor. These
including uses that are not locationally dependent
tenants are looking for rental rates that equate to
upon St. Mark’s Hospital (i.e., chiropractors, dental,
Class B space in secondary markets. The subject
orthodontics).
study area will be considered a largely Class B
The presence of daytime population (i.e., offices) location, initially, but can support some Class A
has become a major consideration for retailers. construction types for specific uses. A significant
An active office market will result in a feasible city amount of sublease space will be entering the
center development. market in the next 18 months, creating some
Building heights are feasible at near five stories in weakness for the Class B market.
the subject area, with likely parking to be provided Floor plates in the study area should be flexible,
at 4.5 stalls per thousand square feet. However allowing for users from 2,000 to 10,000 square
this requirement may be reduced by considering feet, and larger users are currently unlikely.
shared parking structures and analyzing the

RESIDENTIAL MARKET:

There is a healthy residential market in the region, Renters in the area are looking for increased
with developer interest noted to be strong around the amenities in comparison to the renter profile of five
study area. Returns for housing product continue to years ago. Millcreek’s residential vacancy rate is near
outpace most other real estate returns, resulting in 3.5% at the time of this plan’s release (March 2019).
strong interest from developers. A record number of
housing permits were issued in the first two quarters Covered parking garages are feasible in the study
of 2018 and are anticipated to be equivalent with the area, assuming four and five-story buildings are
planned, incoming population growth. Multifamily constructed, either over a podium or as a separate
housing permits are now outpacing single-family structure.
housing permits for Utah.

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02 EXISTING CONDITIONS MILLCREEK CITY CENTER MASTER PLAN

INVESTMENT CONDITIONS: E. UTILITIES

The Federal Government has designated part of All developments create an impact on the existing STORMWATER
the City Center area as a Qualified Opportunity wet infrastructure (Water, Sewer, and Storm Drain). As With new developments there is typically an increase
Zone. Opportunity Zones provide tax benefits for part of the developments proposed with the creation in stormwater generation. The location of this
investments in designated areas. That factor, in of the Millcreek City Center, the infrastructure will development does not have the infrastructure in place
combination with the City’s steps to establish a need to be upgraded. Each utility provider requires to handle stormwater flows. Typical requirements
community reinvestment area in the study area, developers to pay impact fees to assist in upgrading placed on development limit the release of
create development incentives that are unique to of the infrastructure. The following sections detail stormwater flows to 0.2 cfs/acre. The developments
this area. the type of improvements required by developments are required to detain the remaining flows on site.
As a result, the region is seeing record low for likely to occur within the proposed City Center. Stormwater detention can be achieved by either
Opportunity zone areas are positioned to
capitalization rates for nearly all product types. CULINARY WATER SYSTEMS surface or subsurface basins with an orifice plate at
see significant capital inflow for real estate
Capitalization rates (CAP rates) are the rate of the discharge. Subsurface detention can be achieved
projects. However there is some concern about One of the major factors in the sizing of the water
return expected on an investment and are based on by gravel packs or with underground stormwater
aggressive sales practices in the residential lines is the ability to fight fires. The Fire Code
the net income a property is expected to generate. collection galleries, such as StormTech or RainGuard
market that historically reflect “heated” markets establishes the required flow necessary to fight fires
These rates are at historic lows for office and systems. These products have greater storage volume
or markets that have experienced prolonged based upon building size, type, and construction.
residential product along the Wasatch Front. than a gravel pack with similar dimensions but are
periods of growth. It also allows for the Fire Marshal to reduce the fire
typically a costlier item.
flow requirements if fire sprinklers are installed in
INVESTMENT CONDITIONS - UTAH Investment interest in Utah from out-of-state
the buildings. Standard fire flow requirements for Low Impact Development (LID) is a leading
investors increased significantly in 2017 and
2017 2018 Projections commercial (retail, apartments, etc) is between stormwater management strategy that seeks to
early 2018 and is expected to continue.
Total Sales Volume $2.6 Billion $2.7 Billion 3,000 and 4,000 gallons per minute (with Sprinkler mitigate the impacts of runoff and stormwater
Reduction). In order to provide this kind of flow the pollution as close to its source as possible. Urban
Total SF 11.0 Million 11.0 Million
water lines will need to be upgraded to a 12-inch or runoff discharged from municipal storm drain systems
(Commercial
16-inch line depending on the system water pressures. is one of the principal causes of water quality impacts
Total Units Further investigation will be required at the time in most urban areas. It can contain pollutants such as
5,800 Units 6,000 Units
(Multifamily) of each proposed development to determine the trash and debris, bacteria and viruses, oil and grease,
required pipe size to provide fire flow and culinary sediments, nutrients, metals, and toxic chemicals
Average 6.35% 6.25% water service. If total replacement of the system is that can negatively affect the ocean, rivers, plant and
Capitalization Rate
desired by the City in one single project rather than animal life, and public health.
a series of smaller interventions, a special services LID comprises a set of site design approaches and
district could be formed to resolve the need in a more best management practices (or BMPs) that are
organized and uniform fashion. designed to address runoff and pollution at the
SANITARY SEWER source. These LID practices can effectively remove
nutrients, bacteria, and metals while reducing the
Sewer system sizing is based upon the type of use
volume and intensity of stormwater flows. As new
within the developments. Eight-inch sewer lines are
development/redevelopment occurs in the study
typically able to serve approximately 250 equivalent
area Millcreek City is encouraged to implement best
residential units. The existing sewer lines are no
management practices in stormwater management.
larger than eight inches in diameter. Further analysis
is needed at the time each structure is proposed. It IRRIGATION WATER
is likely that the sewer lines will need to be up-sized Irrigation water is present throughout the project
to handle future flows. Coordination with the sewer area. Millcreek City should investigate the possibilities
provider will be required to finalize the pipe sizes of accessing this water for appropriate uses such as
needed for developments in the Millcreek City Center. landscape irrigation within the City Center.

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02 EXISTING CONDITIONS MILLCREEK CITY CENTER MASTER PLAN

Utilities 
IMPACT FEES When looking into the utilities servicing the proposed site we went and pulled a Blue Stakes planning 
and design request for service providers in the area.  Table 1 below shows the recorded providers and 
Table 1: Utility Service providers around the
Service providers charge impacts fees to whether or not service was in the area. 
proposed Millcreek City Center.
developments in order to provide adequate service. Table 1: Utility Service Providers around the Proposed Millcreek City Center. 
These fees are used to upgrade infrastructure such
Provider Name  Utility  Service in 
as sewers, roads, and utility lines. However, there the Area 
(Yes/No) 
are limitations to how and when funds are used. American Telephone &  Communication  No 
Impact fees are required to be used on capital Telegraph (AT&T)  /Fiber 
Comcast  Cable TV / Fiber  Yes 
projects in the area of the new development that Century Link  Communication &  N/A 
are identified by the services provider. For the Fiber 
First Digital Telecom  Phone  Yes 
Millcreek City Center to take advantage of these Google Fiber  Fiber  N/A 
fees, they will need to coordinate with service MCI/Verizon Business  Fiber  N/A 
Mt Olympus Improvement  Sewer  Yes 
providers in the early phases of development. District 
Millcreek also recently enacted a Parks Impact Fee Dominion Energy  Natural Gas  Yes 
Rocky Mountain Power  Power  Yes 
which can be used for capital improvements. Salt Lake City Corporation  Roads  N/A 
Salt Lake County Operations  Traffic Signals  N/A 
Division 
A list of utility providers was generated with Blue Salt Lake City Public Utilities  Water/Sewer/  Yes 
Storm Drain 
Stakes during the review of services on site. Table 1 UDOT Region II  Fiber Optics /  Yes 
shows the recorded providers and whether or not Traffic Signal 
Salt Lake County Utilities  Sewer/ Storm Drain  Yes 
service is provided in the area.  

The attached exhibits show the locations and size of the utilities as provided by the service agencies.  As 
The attached exhibits show the existing locations
development of the Millcreek City Center takes shape more discussion will be needed with the agencies 
to determine infrastructure capacities and need based upon development criteria. 
and size of the utilities as provided by the service
agencies listed in Table 1. Of particular note isOf specific note,  the storm drain in the area is minimal at best.  There are only a couple of catch basins 
the
locate along Highland Drive at 3130 South, and a handful located along 1300 East.  There is a storm drain 
presence of three potential companies to provide
line along 3300 South with catch basins at the intersections, and in between intersections.  These lines 
fiber network service, however at the time of and catch basins are not shown on the record drawings provided.  Some of the buildings in the area 
the
have catch basins in the parking lots.  It is not clear if these lead to underground retention basins or into 
creation of this plan, none currently provide service
a storm water system.  Further investigation will be required to identify how the storm water will be 
within the project area. Millcreek City should managed.   
engage the potential providers and determineManagement of storm water is typically achieved by detaining the storm water onsite and limiting the 
a
rate of flow from the site.  Allowed release rates vary with a typical rate that approximates pre‐
plan of action for providing fiber service in the City
Center in the near future.

Figure 1 - GAS EXHIBIT

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02 EXISTING CONDITIONS MILLCREEK CITY CENTER MASTER PLAN

Figure 2 - IRRIGATION EXHIBIT Figure 3 - SEWER EXHIBIT

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02 EXISTING CONDITIONS MILLCREEK CITY CENTER MASTER PLAN

Figure 4 - WATER EXHIBIT Figure 5 - CANAL EXHIBIT

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02 EXISTING CONDITIONS MILLCREEK CITY CENTER MASTER PLAN

Ex

Ex SD
Ex
SD
Ex SD

PLOT DATE AND TIME: 10/18/2018 10:35 AM

48 RCP
JORDAN & SALT

Ex SD
LAKE CANAL
CATCH BASIN
#11
CATCH BASIN CATCH BASIN
CATCH BASIN CATCH BASIN
#2 CATCH BASIN #14
#5 #10
#3 CATCH
CATCH BASIN

TAB: STORM DRAIN EXHIBIT

CATCH BASIN CATCH BASIN #9 BASIN
#1 #4 #15
CATCH
BASIN
#16

Ex SD Ex SD Ex SD Ex SD Ex SD Ex SD Ex SD

CATCH BASIN

FILENAME: O:\MHTN Architects\Milcreek Town Center\Engineering\Design\Base\Exhibits\Utility Exhibit.dwg

#17

CATCH BASIN
#18
CATCH BASIN
#6 CATCH BASIN
CATCH BASIN #19
#7 CATCH BASIN
CATCH BASIN #20
#8

CATCH BASIN
#12
CATCH BASIN
#13

LEGEND

PROJECT BOUNDARY
Ex SD EXISTING STORM DRAIN LINE

Figure 6 - FIRST DIGITAL TELECOM EXHIBIT Figure 7 - STORM DRAIN EXHIBIT CATCH BASIN
Ex SD

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02 EXISTING CONDITIONS MILLCREEK CITY CENTER MASTER PLAN

Figure 8- COMCAST & TELECOM EXHIBIT Figure 9- ROCKY MOUNTAIN POWER EXHIBIT

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CITY CENTER PLAN 03

02.0 8 .19 | PAGE 4.1

03 CITY CENTER PLAN MILLCREEK CITY CENTER MASTER PLAN

A. PLAN INSPIRATION

MILLER AVENUE

WOODLAND AVE.
Mill Creek Canyon

HIGH
CONNECTED BY NATURE UNIQUE SENSE OF PLACE

1300
Nestled at the entrance of Mill Creek Canyon, the No other community along the Wasatch Front

LAN
City of Millcreek is well connected to this natural is quite like Millcreek. No other city has such

EAST

D DR
amenity. Hikers, runners, cyclists, campers, dog- proximity to first-class mountainous recreation
walkers, cross-country skiers, and others enjoy opportunities alongside access to a full range Brickyard
Shopping

.
this easy to access respite from the urban and of urban amenities and land uses. People living Center 3205 SOUTH
commercial environment of Salt Lake County. It is and working in Millcreek can easily take a hike or
within this setting and context that the City formed a ride through the canyon before or after work
its vision and this plan for Millcreek’s City Center. and still have time to spare. As they drive along
3300 South or Highland Drive, they can shop for
The Canyon is a haven for open space and essential needs or meet friends for a meal.
pedestrian trails, yet the current City Center’s
offerings have little if any resonance with its However, there is a sharp divide between these
namesake. For that reason and the fact that activities because there is no visual continuity
citizens want more thoughtful integration and tying these parts of the City together. The City
representation of these characteristics in their Center Plan aims to bridge that gap. It seeks
everyday life, this plan draws heavily upon these to harmonize the best of both worlds, through
themes. an integrated design that runs through the City 3300 SOUTH
Center. The Plan serves to unify the heart of the N
The City Center Plan calls for more abundant and City with the surrounding residential, commercial
accessible open public space within Millcreek’s and mixed use neighborhoods, through inspiration
urbanized areas. drawn from the canyon and its natural setting. Millcreek City Center Plan potential full build out rendered plan
0 100 200

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03 CITY CENTER PLAN MILLCREEK CITY CENTER MASTER PLAN

THE DESIGN OF MILLCREEK’S CITY CENTER

CITY CENTER GUIDING PRINCIPLES SHOULD REPRESENT THE CITY IN WAYS THAT
ARE DISTINCTIVE FROM OTHER CITIES AND
UNIQUE TO MILLCREEK.
THE CITY CENTER SHOULD EMPHASIZE WALKABILITY, AND
MINIMIZE INTERNAL TRAFFIC AND PARKING DEMAND.
Millcreek should stand out distinctively with
Walkability is core to the notion of the City a City Center that honors our history and
Center. If people cannot walk, stroll, browse, celebrates our character. Gatherings and
sit, dwell, and interact with neighbors, Millcreek conversations should be encouraged. Culture
will have a center that is devoid of the vibrancy and arts should be facilitated. Design for civic
and sense of place residents expect. Moreover, functions should be non-commercial and
access to the City Center from neighborhoods distinct from the surrounding commercial and
should be designed so that people may access residential properties. Signage, site amenities,
the City Center on foot, bicycle or means other and architecture should be restrained, low-
than by driving. Plaza-like spaces for walking and light, and traditional but artful. Water and trees
gathering are encouraged. Traffic and parking should be used to highlight these places, a direct
should be designed to be separate from the expression of the character of the City. Spaces,
public space, which should amplify the Center’s walkways and seating should integrate indoor
character as a place for community members with outdoor environments.
to meet. Publicly accessible parking structures
THE CITY CENTER SHOULD EMPHASIZE
should be constructed to minimize surface
CULTURE, ART, IDEAS AND INTERACTION
parking and maximize space for public life. BETWEEN CITIZENS

THE CITY CENTER SHOULD INCLUDE Millcreek needs to emphasize its support for
MUNICIPAL PROPERTY OWNED BY THE CITY
all arts and the City Center can and should
AND DESIGNATED FOR PUBLIC USE.
showcase that. The population of Millcreek
The City Center should serve civic purposes and is sophisticated, with schools that have
should include property owned by the City to be aggressively taught arts for many years. The
used for their goals, referenced in the Introduction range of arts should be broad, covering the
section of this plan. This will lead to the visual, musical, performance and literary arts, as
development of a signature public space. Building well as newer forms. An emphasis on shopping
in the City Center is a premier opportunity for as a city culture can be decadent. Millcreek’s City
any developer seeking to showcase a high-profile Center can stand out from the majority of the
project. Therefore, it is appropriate to require homogenized and consumer-centric commercial
developers to invest in public spaces through centers in Utah. The Center should have an equal
impact fees and dedication of space for Millcreek focus on bringing Millcreek citizens together
residents and visitors to enjoy. A payment in-lieu to do things other than shopping. Activities
system is being considered in this area and Mill like concerts, art exhibits, and community fairs
Park features and land could be dedicated instead should be programmed. Cultivating these types
of private open space. Such investments might of interactions with residents through events and
include enhanced street amenities and features happenings like outdoor sculpture gardens and
in and along the periphery of Mill Park. Additional art installation exhibits will help create a more
landscaping and flexible outdoor spaces that can interconnected, cohesive community.
be adapted for public events are a few examples.

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03 CITY CENTER PLAN MILLCREEK CITY CENTER MASTER PLAN

1 2

View from 3300 South facing north Wintertime view of Mill Park

5
3 4

2
1
Grandeur Boulder Mill Park streetscape

5 6

View from 1300 East looking southeast Food Truck plaza

City Center Plan

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03 CITY CENTER PLAN HUDSON AVE
MILLCREEK CITY CENTER MASTER PLAN

Buildings should be designed so that edges step

NEIGHBORHOOD DISTRICT down to the street to create a comfortable feeling Projects underway

The “Neighborhood District” should relate to the

of enclosure. Large, massive buildings should be
avoided or broken up into smaller sizes that fit in
3000 S
Existing buildings
Potential future bldgs.
overall character of the surrounding residential with the scale of adjacent homes. Row-style or City Center plan area
areas. It should be transitional in nature, stepping low-rise stacked flats are good options that allow Open space/landscaping
up the density of single-family homes to for a gradual step up in density from the nearby
multifamily units and serve as a walkable north- single-family homes. This building form will likely
south gateway to more development-intensive be a more agreeable development style in the
parts of the City Center. area and can help create more “missing middle”
housing stock, or housing types that are more
Building heights and footprints should respect the affordable than single-family homes, clustered
neighborhood feeling and preserve view corridors together, and compatible in scale with existing
and avoid creating nuisances for existing residents. residential neighborhoods.
Fault Line Mixed use
project
underway

E 3010 S
ELGIN AVE
RICHMOND ST

NEIGHBORHOOD E 3045 S FUTURE Mixed use

Villa
project
TRAIL
HIGH

DISTRICT underway Theatre

LAN

GUNN AVE GREGSON AVE

D DR
IVE

E 3115 S

MILLER AVE
BRICK
YARD E 3150 S
R D

WOONERF
Neighborhood District
The District is well-served by transportation pull people out onto the street. Unused parking
corridors along 1300 East and Highland Drive. lots can be the home for small outdoor gatherings,
However, pedestrian passages or laneways small impromptu parks, and block parties with
between developments can be added to increase WOODLAND
space for food trucks and outdoor, projected
connectivity and increase the likelihood of film screenings. The existing Lilac bushes along
neighbors taking walks through the area. They can Highland Drive will be updated with enhanced
link activity on Elgin Ave, Gunn Ave (to possibly landscaping as a neighborhood park space that
be renamed Villa Ave), and Miller Ave. These reinforces community identity.
smaller pedestrian blocks are more inviting and
safe to those traveling on foot or bike and the The overall goal of3205 SOUTH
the Neighborhood District is
mid-block passages can provide a high-comfort to function as a transition space from the purely
route for bicyclists traveling north-south in the City residential zones to the east and west, to Millcreek
Center and prefer a slower, calmer facility without Center, the central part of the Plan area. It will
adjacent vehicles. Strategically placed commercial assist in drawing area residents is area should draw
and retail uses on corners with plazas, and people into the true City Center.
transparent facades can help create lively uses that

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PLAZA
 CRANDALL AVE.
03 CITY CENTER PLAN MILLCREEK CITY CENTER MASTER PLAN

ZENITH AVE. 1 3

HUDSON AVE

3000 S

2 3010 S

A A 3045 S
Pedestrian only alleys or laneways will
help create smaller blocks and a greater
Canopies of string lights
warm ambiance and provide a lively
create

10’ 10’ 5’
3 chance that people will want to walk. atmosphere, as well as a feeling of safety
in low light conditions. Section A-A
“Laneway” Concept

2 3060 S 4
B 4 B

3115 S

3150 S
Villa
Theatre

Section B-B
Activated Public Gathering Space

Active land uses such as cafes at corners A parking lot turned plaza can become
can brighten a quaint neighborhood and a hip outdoor eating hub for people to
draw people into the public realm. enjoy food trucks and socialize.

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03 CITY CENTER PLAN MILLCREEK CITY CENTER MASTER PLAN

it will be the home of the City’s Civic Facilities

MILLCREEK CENTER with parking. It will be the part of town where 1 Bucolic space for New Civic Facilities
people can go every weekend because they know quiet, reflective uses Existing buildings
such as walking,
”Millcreek Center” is the project area’s focal something is going on. Land uses in this area Potential future bldgs
conversing, etc.
point. It links the Neighborhood District, the City should be flexible and adaptable, with an emphasis City Center plan area
Marketplace, and the Brickyard commercial area. on non-residential activity occurring on the ground Open space/landscaping
Beyond connecting these areas, Millcreek Center floors of buildings, particularly those along Mill
Plaza / hardscape spaces
is designed to be a space where inhabitants can Park. Intensity of development is indicated by the
engage with the City and one another. darker, more saturated blue color. Taller buildings 1
and higher density land uses will be encouraged. New Civic Facilities
with parking
This area will have the greatest mass, the highest
level of development intensity, and sidewalks In comparison to the Neighborhood District, this
wide enough to accommodate patio dining and part of the City Center is more readily accessible
significant pedestrian traffic. Most importantly, to pedestrians and cyclists. Vehicles will be
4 Transit stop with
monument sign
2 Activity zone for
2 providing visitors a
uses such as splash sense of arrival.
pad, bouldering,
tot lots, sand pits,
and playground
equipment.

3
3 Civic zone for
community uses such
as farmers market,
concerts, and other
large scale outdoors
4
events.

Millcreek Center

MILLCREEK intentionally discouraged from cutting through is obscured by other uses on the perimeter of the
CENTER this area easily or quickly. Pedestrians and structure such as residential or commercial). A
cyclists tend to feel the most welcome and safe transit stop for transitioning from buses to walking,
when automobile traffic is slow and controlled. biking or rideshare should be located on 3300
For that reason, adding a “woonerf” - a street South near the large Mill Wheel landmark.
built to comfortably accommodate all modes of
transportation through shared spaces - low speed The crown jewel of the Millcreek Center is Mill
limits, and traffic calming measures, is encouraged. Park: the large swath of open space running north
A one-way couplet street will allow vehicles to to south through the development. The linear
access the area at a slow speed. There will be park space will have a distinct look and feel, and
a turnaround on the south-side so vehicles can will become a regional destination for events.
circulate without driving back onto 3300 South. The edges of the Park will be inviting and well
To assist with parking demand management, two landscaped with trees to buffer noise from car
hour on-street parking will be available in addition traffic on 3300 South.
to a paid “wrapped” parking garage (the garage

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03 CITY CENTER PLAN 3115 S
MILLCREEK CITY CENTER MASTER PLAN

1 2

8
3150 S
B

WOONERF
A welcoming and distinctive gateway Mill Plaza will enhance the public realm
7 and transit stop with public art will greet with amenities to comfortably support
B

residents and visitors to the Center. outdoor markets and events.

3 4
WOODLAND
6

5
Shared outdoor restaurant or food hall Shaded seating areas will be provided Section A-A
seating can be placed in the periphery to throughout to allow people to stop and Mill Plaza Concept
invite eaters to sit and stay. take in all the sights and sounds.
4

3205 SOUTH
5 6
3

2
A splash pad can provide cooling relief A modern playscape inspired by the
in the summer, and transition to be serve rocky mountain terrain will be accessible
A A as an ice rink in the winter. and fun to all ages.

1 7 8

PLAZA

Parks in Millcreek Center act as a A monument sign, accented crosswalks Section B-B
backyard with abundant vegetation and and vegetation welcome visitors to the Mill Park Concept
calming restorative spaces. north entrance of Mill Park.

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 3060 S
FUTURE
03 CITY CENTER PLAN TRAIL MILLCREEK CITY CENTER MASTER PLAN

3115 S
Given its accessibility by three large automobile
CITY MARKETPLACE thoroughfares, this area of the plan is where New Civic Facilities
larger commercial land uses are to be expected. Existing buildings 3150 S

WOONERF
The “City Marketplace” is located at the south Retail currently dominates both sides of the Potential future bldgs.
end of the City Center District, and is meant to street, however redevelopment of this area could City Center plan area
serve as an active zone where residents achieve improve its urban design. For example, large strip Open space/landscaping WOODLAND
their essential shopping needs along a major malls with parking lots that front the street can
Plaza / hardscape spaces
community thoroughfare. A monument sign at the be replaced by buildings with smaller footprints,
key intersection of 3300 South and Highland Drive decreased setbacks, and parking hidden behind
can welcome residents and visitors to the City and or to the side of buildings. Windows should be 3205 SOUTH
help build a sense of arrival. oriented to take advantage of view corridors.

PLAZA

1100 E
Home
Depot

City Marketplace
Furthermore, a diversity of commercial uses should Given the nature of roads and surrounding land
POTENTIAL

1300 E
be encouraged including both large and small uses, trip-chaining or the FUTURE
practice TRAIL
of taking
businesses. Infill development and an increase CONNECTION
multiple trips between destinations on one outing,
in connectivity of the street grid throughout this in this area is expected. It can be improved by
district should also be incentivized to help activate creating better, more intuitive linkages between
CITY
the City Center. Low to mid-rise developments buildings and businesses. Fault
AddingLine
sidewalks
MARKETPLACE
would be acceptable, which are sensitive can encourage people to make trips between
to transitioning to single-family residential businesses on foot safely. Additionally, creating
neighborhoods. Such transitions should provide engaging and inviting commercial frontages
landscaping buffers of trees, avoid lights or sounds and corner plazas for lingering can be good for
directed towards single-family neighborhoods, and business, increase safety, and improve quality of
reduce building height to appropriate scale to not life. The goal of this section of the City Center is to
overwhelm nearby neighbors. have safe and inviting public connections between
commercial spaces and improve economic vitality.

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03 CITY CENTER PLAN MILLCREEK CITY CENTER MASTER PLAN

The natural surrounding of Millcreek is inherent

PRESERVING VIEW CORRIDORS to its character and identity and makes the
City distinct from others in the Salt Lake Valley.
With its proximity to the Wasatch Mountains, The City can be strategic and intentional about
Millcreek has an abundance of views to this natural creating sight lines to specific peaks or parts of
landscape. As the City Center becomes developed, the mountain range from areas of concentrated
the City should look to preserve and create activity. Occupiable rooftops throughout the
memorable view corridors to the mountains. As City Center, available in both public and private
the theme of the City is “connected by nature,” it arrangements are highly encouraged.
must honor this visual link. Urban design elements
will enhance the streetscape and bring added At the end of each city block there is the
vegetation and natural elements to this urbanized opportunity to create sight lines or viewsheds.
part of the City, and just as important, the City Building heights should be sensitive in assuring
Center design should capitalize on remarkable that as many east facing rooftops and windows
views, and to every extent possible, protect the have unobstructed or partial views to the Wasatch
views that surrounding users enjoy. The map on Range. The map at right illustrates the central part
the next page illustrates key areas that should of Mill Park as a place that is intentionally oriented
remain unobstructed and where there should be for excellent views of the valley in multiple
increased sensitivity to building heights. Preserving directions. Taller buildings will also have increased
these view corridors will also add to the City vantage points that should be developed as
Center’s unique sense of place. rooftop gardens or decks.

View of Mount Olympus from Millcreek Key view corridors and vantage points

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03 CITY CENTER PLAN MILLCREEK CITY CENTER MASTER PLAN

B. INCORPORATION OF PUBLIC COMMENTS

The City of Millcreek made a concerted effort to There were also three open houses held in
create a City Center plan that reflected the views Millcreek’s City Hall. This provided another
of its citizens. opportunity for residents to express their views
and opinions about future development. Attendees
The themes and ideas presented here are a direct were able to gather around tables and work
result of numerous community engagement together on answering questions, responding to
events, conversations, exchanges, and discussions visual cues, and brainstorming new ideas. Prompts
with the public. provoked people to think about what kinds of
businesses they visited regularly, other city centers
The voices and opinions of the people of Millcreek they liked, physical characteristics they were drawn
were solicited from the very inception of a City to, and what development phasing could look like.
Center Plan idea. City staff brought citizens
together twice prior to engaging a design firm These community observations led directly back
to help develop and articulate their vision. These into the final designs for the City Center. Some key
early meetings may have been the reason the themes and concepts that were developed include:
idea of creating a distinct City Center progressed • integrating natural elements that reference
successfully and had so much support. the canyon and unique city setting against the
mountains and on the fault line
Once the design firm was contracted, community • more plazas and walkable spaces where
participation continued to be a central tenet of the people can enjoy art, markets, dining, pubs,
planning process. This is illustrated by the fact that and interact with one another
the project was kicked off with two public walking • supporting local business and local character
tours of the emerging centers in Sugar House and • promoting the City’s distinct focus on the arts
in Holladay. These events were promoted through • creating active ground floor uses
word-of-mouth, mail, and online using social • incorporating a variety of buildings
media. Both tours had a high turnout and the • being sensitive to building heights
design team shared with participants good urban • preserving view corridors
design practices and listened to understand which
aspects of each community people liked best, In addition to these ideas, the public wanted to
would change, and would want incorporated in create a City Center where people would want
Millcreek’s City Center. to come and spend time, while respecting the
community look and feel of Millcreek. More detail
about the public involvement process can be found
in the Appendix of this plan.

Sugar House walking tour with Mayor Silvestrini and Millcreek citizens

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03 CITY CENTER PLAN MILLCREEK CITY CENTER MASTER PLAN

D. BUILDING FORM
HEIGHT MASS

Height is often the physical attribute of new Mass refers to the volume of buildings. Similar
development that most concerns existing to height, buildings may have a large mass, but
residents. This is especially true when there are can use strategies that obscure their true size.
world class view corridors to pristine mountains Deliberately articulating a ground floor facade’s
and valleys at stake. For that reason, the height of dimensions will be key in achieving the right-sized
new buildings should not interfere with these views building. Amending the current code will help
for and should be carefully planned. make use of thoughtfully placed windows, visible
stories, cornices, and entry features to achieve this
goal.

WIDTH

Spaces, whether they be streets, sidewalks, or

plazas can either be too wide or not wide enough
to successfully support a vibrant public realm
environment. Streets that are too wide can be
difficult and dangerous to cross. Plazas that are too
large never feel fully activated, even when there
are many people. On the other hand, narrow plazas
and sidewalks can make it difficult for people to
stop and congregate because they feel like there is
no room. Building width will be encouraged to be
SCALE
broken up visually in vertical fashion. This creates
the feeling of an organic series of smaller buildings
While related to height, scale has more to do with
or developments adjacent to one another and
the feeling of being in a place, especially as a
supports an active pedestrian realm more than
pedestrian. Buildings may be large and tall, but can
long buildings, with little variety.
have a “human scale” if the ground floor isn’t too
tall, uses setbacks to frame the street, and creates
a comfortable space in comparison to the height
of a person. Scale can also be enhanced by using
varying shapes and sizes of vegetation like trees
and shrubbery. Ideally, the scale throughout the
City Center will change from the Neighborhood
District to the Millcreek Center to the City
Marketplace, but never make people in the open
spaces feel overwhelmed or as if they don’t belong.
The key to creating a unified feeling between the
variety of scales in the area is to effectively break
down building scale through clustering of buildings
City Center Plan and spaces.

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03 CITY CENTER PLAN MILLCREEK CITY CENTER MASTER PLAN

heights of one to three stories is recommended.

HEIGHT SENSITIVITY This gradual increase of height from surrounding LIKELY BUILDING HEIGHTS
neighborhoods to the Center will help create a
The illustration below shows the recommended Despite this, incentives can be used to promote the
seamless transition and prevent the feeling that The diagram below illustrates building height
approach for creating step-down heights that development of taller office buildings, in addition
any one building is too tall for its surroundings. possibilities for three asset classes with information
respect surrounding neighborhoods. The densest to 4-5 story residential. Overall, returns will be the
Furthermore, the liberal use of step back on if their development is financially feasible and
part of the City Center, with buildings of six or most desirable for residential property in the area,
requirements can ensure that pedestrians walking how likely it is to be incentivized. Single story retail
more stories, is found at its core, especially around and developers will pursue this use type unless
next to tall buildings don’t feel dwarfed. This will and 1-5 story residential are all financially feasible.
the Mill Park open space and one-way couplet incentives are provided for office and mixed use.
be considered for all buildings in the City Center, On the other hand, 1-3 story office is financially
street. Immediately surrounding this are buildings Building heights in excess of 6 stories in the City
and especially those fronting Highland Drive, to possible, while 4-6 story office is less feasible.
between four and five stories. Between that Center are identified only at the key intersection
support an active pedestrian realm. Single story development is only encouraged
area and the border of the project area, building of 1300 East and 3300 South and will be carefully
at locations where transitions to surrounding
residential neighborhoods make this type of reviewed for conformance with the intent of this
development appropriate. Elsewhere in the City Plan.
Center, mid-rise development is recommended.
BUILDING HEIGHT
1300 EAST/RICHMOND DRIVE

1-3 Stories
HIG
HLA
ND
DRIV 4-5 Stories

6+ Stories
E

OFFICE 1-3 OFFICE 4-6 RETAIL SINGLE STORY* RESIDENTIAL 1-3 RESIDENTIAL 4-5
STORIES STORIES Feasible? - Yes STORIES STORIES
Feasible? - Possibly Feasible? - Not likely Incentives? - Potentially Feasible? - Yes Feasible? - Yes
Incentives? - Not likely Incentives? - Yes Incentives? - No Incentives? - Potentially
* Intended as ground floor
use within mid-rise building

increase walkability, and promote vibrancy. The

TYPES OF DEVELOPMENT WHICH City Center’s siting as an Opportunity Zone
ARE LIKELY IN THE NEXT 10 YEARS should also be considered as a valuable economic
development tool that will spur additional interest
Multifamily development is the far most-likely asset in the area. It is noted that the returns indicated
class to be developed in the City Center, followed in the plan do not reflect the influence of the
by retail, and then office. A healthy balance of Opportunity Zone and some use types may be
3300 SOUTH
all three types, including mixed use properties slightly more feasible due to this tax savings
should be sought after to help reduce auto trips, benefit.

2019 2020 2021 2022 2023 2024 2025 2026 2027 2028 2029 Total
Office Space - Sq. Ft. 25,000 -- -- 25,000 -- -- 25,000 -- -- 25,000 -- 100,000
Office Land - Sq. Ft. 36,867 -- -- 36,867 -- -- 36,867 -- -- 36,867 -- 147,467
Office Land - Acres .85 -- -- .85 -- -- .85 -- -- .85 -- 3.39
Retail Space - Sq. Ft. -- 10,000 -- -- 10,000 -- -- 10,000 -- -- 10,000 40,000
Retail Land - Sq. Ft. -- 39,000 -- -- 39,000 -- -- 39,000 -- -- 39,000 156,000
Retail Land - Acres -- .90 -- -- .90 -- .90 -- -- .90 3.58
Multifamily Square Feet 100,000 -- 100,000 -- 100,000 -- 100,000 -- 100,000 -- -- 500,000
Multifamily Land - Sq. Ft. 95,455 -- 95,455 -- 95,455 -- 95,455 -- 95,455 -- -- 477,273
Multifamily Land - Acres 2.2 -- 2.2 -- 2.2 -- 2.2 -- 2.2 -- -- 11.0
Total Multifamily Units 91 -- 91 -- 91 -- 91 -- 91 -- -- 455
*Potential Millcreek City Center Absorption Rates per Zions Public Finance Market Study October 2018

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03 CITY CENTER PLAN MILLCREEK CITY CENTER MASTER PLAN

projected at $121,100,000. These figures do not

HOW CAN NEW DEVELOPMENT consider the impact on surrounding property HOW CAN THE CITY WORK WITH • Utility and function: ground floor retail should
FISCALLY IMPACT MILLCREEK?* values. In a vacuum, residential property seems DEVELOPERS TO ACHIEVE A be built with options for multiple uses, from
to be the best market area for investment, but COHESIVE CITY CENTER? standard retail to complex restaurant space.
New development of residential, retail, and office, residents have higher demands for city services While this includes additional expense for
all have varying fiscal impacts on Millcreek’s which result in higher costs. Ideally, there should Millcreek City will need to establish several ventilation and building systems, it provides for
potential revenue gains. The pie charts below be a healthy balance of housing, jobs, and retail in strategies to promote diversified development in flexibility of uses as market conditions change
indicate the possible annual tax revenue for these the City Center. their City Center. One such strategy is creating and spaces rollover.
real estate asset classes. The total number of tax increment financing to help developers fund
square feet for each is based upon Zions Public The daytime population increase from potential gaps they may have in their projects. Furthermore, • Job creation: incentives may be tied to
Finance estimates of possible absorption for the office use is notable but unlikely to significantly the City can utilize this powerful and effective creation of jobs, particularly those which
area. The total added annual tax revenue to the influence retail users in the area. However it would tool to also promote consistent urban design offer incomes above median levels for the
City amounts to $210,500, of which $160,500 be a catalyst for City Center feasibility and help characteristics in new projects. To qualify for neighborhood. Incentives can also be tailored
are property taxes. The new property value is create a restaurant/eatery core. potential tax increment financing incentives, to encourage expansion of local businesses
Millcreek should establish specific design criteria based in Millcreek to promote a healthy jobs-
for developers in order to achieve the product look housing balance in the community.
STACKED FLATS OFFICE RETAIL and type that is desired. Potential options that
can be part of Master Development agreements • Building materials: incentives can be utilized
include: for usage of select building materials, including
100,000 SQ FT. $22,000,000
those which help qualify the building for green
40,000 SQ. FT. $7,200,000 • Amount of covered parking vs. surface spaces: status, or, use materials from local sources.
SQUARE PROJECTED
requirements should be considered based on Furthermore, building material incentives can
FEET VALUE
specific location, use type, ability to share with achieve a specific look that the City wants
neighboring uses, etc. Consideration should for the area including increased use of glass,
500,500 SQ. FT. $91,900,000 also be made for number of curbside spaces. as well as natural materials such as wood,
terracotta, stone and masonry.
• Green/open space: requirements for high
density users to provide a percentage of green • Use types: incentives can require that key
$41,000 or open space per unit. This could include corners are used for prime retail uses, and
private balconies/decks, rooftop gardens, not for residential use or other uses. Code

1300 580
ANNUAL trails, etc. In-lieu fees could also be used. amendments or development agreements
TAX
$64,000 can also stipulate requirements for number of
REVENUE POTENTIAL RESIDENTS POTENTIAL EMPLOYEES
• Setback requirements: this may involve employees per square foot of building area,
$102,000 requirements for street-side retailers to be built thereby resulting in the density of employees
to property lines, or, allow for sidewalk eating. that the City desires.
Financial Data Source: Zions Public Finance Additionally, upper level setback requirements
could detail gradual setback increases with • Public art and landscaping: incentives and
story heights to reduce street level shadowing code requirements should stipulate specific
and provide ground level appeal. landscaping requirements, including flower
boxes, planters, public art options, etc.

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03 CITY CENTER PLAN MILLCREEK CITY CENTER MASTER PLAN

C. PREPARATION FOR FUTURE FORM BASED CODE APPROACH

ROOFTOP
GARDEN

06

20-30%
05
TRANSPARENCY
(ABOVE STEP BACK)

04
UPPER STORY
10’ MIN BALCONY
STEP BACK

03 BUILDING NAME
50 % +
TRANSPARENCY
(GROUND FLOOR AND
BELOW STEP BACK)

02 PARKING
BUILDING NAME

ACTIVE GROUND
30’ MAX ON STOREFRONT
01 FLOOR USE WIDTH ON GROUND FLOOR

PARKING BENEATH, BEHIND, OR

WITHIN (INSIDE) BUILDINGS
BUILDING ELEVATION Balconies and amenity decks on the second or
third floors can add to the vibrancy of street life as
Similar to the form of the building, the elevation they allow people to see and be seen from various
should visually support activity at various levels. heights. Rooftops should be made into amenities
BUILDING FORM Second and third floor balconies provide a place
On the ground floor, there should be increased and can have furniture, landscaping, and pools, all
for people to enjoy life on the street, while acting providing excellent views. Facades should be made
transparency and porous edges to allow for
Building form is crucial in shaping comfortable more as spectators who can also be seen by those of varying materials to help add complexity and
interaction between people inside and outside
exterior space. In the City Center, buildings can be down below. Rooftops are the most private of the visual interest to life in the City Center. Similarly,
buildings. Ground floors should be human-scaled
tall, but they must allow engagement at multiple outdoor spaces a building can provide. Decks with vertical breaks above the step back should be
and have step backs to allow for taller buildings
levels. This starts on the ground floor. Land uses seating, bars, and even pools, can capitalize on the encouraged at minimum intervals to promote
that don’t feel imposing. Storefronts should not
and building types should be active. Business types valuable viewsheds of the area. Parallel parking can variability among buildings while heights are likely
be wider than 30 feet on the ground floor. This
that have a consistent hum of customers or visitors line front streets, but the bulk should be behind or to remain fairly consistent.
width is a structurally efficient dimension and
should be placed in these locations. Consistent underground. In combination, a complex building
provides enough variety at small intervals to
application of awnings and overhangs should be form with a multiplicity of spaces for people to This building elevation diagram is intended to
keep pedestrians engaged as they walk along the
provided on buildings that front Mill Park. enjoy will create a vibrant environment. guide best practices for building form throughout
streets.
the City Center, but is most applicable to
development in the Millcreek Center district.

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URBAN DESIGN 04

Ma rch .19 | PAGE 4.1

02.028019
04 URBAN DESIGN MILLCREEK CITY CENTER MASTER PLAN
CRANDALL AVE.

ZENITH AVE.
A. URBAN DESIGN FRAMEWORK
ELEMENTS OF A SUCCESSFUL CITY HUDSON AVE
CENTER

SIGNATURE ELEMENTS 3000 S

The City Center provides a wealth of FUTURE POTENTIAL BIKE TRAIL
3010 S
opportunities to showcase urban design elements
that are distinct to Millcreek. Smaller streets and
laneways will be added to break up the large 3045 S
blocks and create more interesting and better Fault Line

connected pathways. Another signature element FUTURE MILLCREEK BIKE TRAIL

3060 S
of Millcreek’s City Center is the fault line which FUTURE
TRAIL
runs beneath the future Mill Park. Rather than
placing earthquake-resistant development on top 3115 S
of this geological characteristic, the City Center
will feature the fault line with open space for
3150 S

WOONERF
gathering, plazas and parks. The sidewalk and
streets can even have informative and artistic
WOODLAND
signage that pays tribute to this geologic feature.

HUB OF ACTIVITY
As the central place for civic engagement, the 3205 SOUTH

City Center design creates a core from which all

other activity will radiate outward. Potential exists
to expand and connect bicycle and pedestrian
trails to the Canyon. The integration of these two PLAZA

“third places”, or places for social activities other

than home and work, can help promote the active

1100 E
and healthy lifestyle of the City. If the design and
implementation is successful, visitors will return
again and again to the City Center.
LEGEND
UNIQUE BRAND AND IDENTITY STUDY AREA

FAULT LINE
Millcreek has the rare combination of being a
UPDATED ROADS
gateway to the outdoors and a place where
EXISTING BUILDINGS
eclectic arts and culture thrive. With the POTENTIAL BUILDINGS
mountains and canyon in its backyard, it is BUILDINGS IN PROGRESS
POTENTIAL

1300 E
innately “connected by nature.” Its identity is POTENTIAL CIVIC CENTER /
MIXED USE & PARKING
FUTURE TRAIL
CONNECTION
equally defined by its diverse architectural and FUTURE MILLCREEK
BIKE TRAIL
cultural styles. Modern exists next to traditional, FUTURE POTENTIAL
BIKE TRAIL Fault Line
bright colors along muted tones. Natural styles
mingle with retro classic ones and together they
represent the diverse community of Millcreek. City Center Plan

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04 URBAN DESIGN MILLCREEK CITY CENTER MASTER PLAN

CREATE A NETWORK OF SMALLER BLOCKS: Breaking down blocks and increasing connectivity PARKS AND PUBLIC OPEN SPACES:
In order to increase the walkability of the City to the City Center will also promote new and The proposed Mill Park will create a central A range of additional amenities that promote
Center, small north-south laneways are proposed safer connections to adjacent neighborhoods. public corridor of parks and plaza spaces. outdoor placemaking can be incorporated into
within the existing blocks between Highland Drive, As neighboring Brickyard ages and approaches Interconnected open spaces will occupy about 10 the plazas including multi-functional open space
3300 South, Richmond Street and Elgin Avenue. redevelopment, strategies in this plan should be percent of the City Center. Park features such as for Farmers’ Markets, concerts, and festivals.
The existing blocks are long, some of which run used to think about how to create better east- play structures, splash pads, water features, slack Shade trees and covered structures or pavilions
475 feet from north to south and exceeding west connections to this area for all modes of line poles, and a climbing park will be included can also support and provide comfort for these
800 feet from east to west. These lengths limit transportation as well. to promote Millcreek’s active lifestyle identity. “living outside” community activities. Public
the ability to easily move through and around The Park can also connect the heart of Millcreek restrooms should also be made available if
CRANDALL AVE.
the neighborhood. Laneways create shorter We see how new development in areas like Sugar to other regional networks (bike paths, public possible. Overall, this area should achieve an
pedestrian-focused corridors that are unique, House reflect a national trend of fragmenting mega transportation routes, nature trails). Furthermore, active space for recreation that is dynamic and
intimate, and more manageable. Cyclists can use blocks and how Brickyard might be redeveloped this designation of the City Center as open space can adapt toAVE.
ZENITH changing needs and activities. It can
laneways to more easily connect to regional trail in this way. A Millcreek City Center with smaller maximizes the ‘unbuildable’ land above the fault also acknowledge Millcreek’s connected by nature
networks. The City should try to achieve block blocks would be prepared to make better line as useful active public spaces. Dense, urban environment by using signage and wayfinding to
HUDSON AVE
lengths of 300 to 400 feet. connections in the event of redevelopment in uses should be placed closest to these open indicate how near or far to local peaks and trails.
Brickyard. spaces to benefit from their activity.
3000 S

3010 S

3045 S
Fault Line

3060 S

FUTURE MILLCREEK BICYCLE TRAIL

3115 S

3150 S

10%

1100 E
FUTURE POTENTIAL BICYCLE TRAIL FUTURE POTENTIAL BICYCLE TRAIL

FUTURE MILLCREEK BICYCLE TRAILS FUTURE MILLCREEK BICYCLE TRAILS

FUTURE LANEWAY CONNECTIONS PERCENTAGE OF OPEN SPACE IN CITY CENTER

1300 E
Fault Line

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04 URBAN DESIGN MILLCREEK CITY CENTER MASTER PLAN

VARIETY OF USES / 18 HOURS OF ACTIVITY / CONNECTIVITY WITHIN AND TO THE CITY

250 DAYS PER YEAR CENTER
The urban design of the City Center can determine Balancing these elements with housing and Many citizens currently refer to the project site as connected plazas. Cycling can be encouraged with
how residents and visitors use and experience office can help generate a healthy mix and flow “the island” because of the difficulty connecting enhanced and permanent facilities such as bicycle
its spaces. A diverse and dense mix of land uses, of activity over the course of the day. The Center to it. A variety of strategies should be employed lanes, midblock crossings, bikesharing and bike
active transportation infrastructure, and strong should be promoted as a place where you meet to make the edges of the site more permeable and racks. This active transportation infrastructure
design can support an active healthy place with 18 basic shopping, dining, retail and other basic needs increase connectivity to and within the City Center. should connect to larger trail networks including
hours of activity, 250 days of the year. all within walking distance meaning these uses Improved connectivity can have many benefits nature trails like the McClelland and Mill Creek
should be placed in close proximity of one another, including transportation choice, safety, health, trails. The transportation stop should integrate
Diverse land uses that invite visitors including with well-connected pathways to reach them. and economic vitality. Implementation of these active transportation with local transit networks.
restaurants, retail, grocery stores, galleries, strategies should consider all modes of travel.
museums, civic spaces, recreation facilities, and Major arterials such as Highland Drive and
places to relax should be encouraged. To improve pedestrian connectivity, the City Richmond Street can become “grand boulevards”
should encourage smaller blocks, wider and that provide a comfortable place for all modes of
improved sidewalks, additional and safer signalized transportation. For more on boulevards, see page
crosswalks, narrower streets when possible, and 4.8 and 5.2-5. They can also connect smaller public
CRANDALL AVE.
PARK, OPEN SPACE, VERTICAL MIXED USE WITH
other traffic calming measures. Street design spaces like plazas and parks so that the boulevards
COMMUNITY RESIDENTIAL
should be pedestrian-focused through new themselves become active places.
ZENITH AVE.
laneways, arcades, transparent storefronts, and

HUDSON AVE

3000 S

VERTICAL MIXED 3010 S

USE WITH MUNICIPAL

VERTICAL MIXED USE
AND OFFICE 3045 S
COMMERCIAL AND RETAIL Fault Line

3060 S

3115 S

3150 S

WOONERF
WOODLAND

3205 SOUTH

1100 E
GATEWAY POINTS PEDESTRIAN CONNECTION FUTURE POTENTIAL FUTURE MILLCREEK
BIKE TRAIL BIKE TRAIL

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130
04 URBAN DESIGN MILLCREEK CITY CENTER MASTER PLAN

MILL PARK LANEWAYS & WOONERFS EAST - WEST NEIGHBORHOOD STREETS

B. DISTRICT IDENTITY
The City Center’s Mill Park is a grand open space To afford better ways for pedestrians to cut across The east-west streets in the City Center, or
STREETSCAPE and park that will exist over the fault line. This larger City Center blocks and more directly access “neighborhood streets,” enhance connectivity by
BOULEVARDS linear space invites people to stroll and experience their destinations, laneways should be added adding additional intersections and breaking down
its various elements. between and through blocks running in a north- large blocks. Smaller blocks are more walkable
Proper boulevards strive to equitably provide
south direction. blocks and provide more options for people to
opportunity for all users and modes of
The Park and its image will change through the access their destination.
transportation. They are key to the success of great
seasons. In the spring, there will be Farmers’ Multiple designs to create laneways can be
new public spaces. They re-balance the power
Markets selling fresh produce and flowers. In successful in the City Center. Woonerf-style The current shape of the area bordered by
struggle between pedestrians, cyclists, transit and
the summer, live music, outdoor events, and laneways can promote slow-speed environments large north-south arterials on each side makes
cars on the street. The greatest boulevards in the
artistic activities will dominate the space. All the for all users. In a traditional woonerf, all modes it somewhat of an island. By enhancing linkages
world are typically broad and lined with trees. They
restaurants will have their patio furniture out travel on a street that is at the same grade and running east-west, the isolated environments of the
have comfortable space to accommodate vehicles,
on the sidewalks and people will enjoy people includes no curbs. However, designs can also area are broken down and the entire City Center
buses, bicycles and people walking.
watching whether they are sitting at a cafe or maintain the level street characteristic, while becomes more accessible from all sides.
walking by. The sidewalks will be shaded by lush, accommodating bollards between pedestrian
The vehicle lane widths are typically not large and
full-canopied trees and those outside will enjoy walkways and vehicular driveways. Vegetation such These smaller streets are defined by better, wider
range from being as small as 10-12 feet. This size
the evening breeze that comes down through the as trees or potted plants can also be strategically landscaped sidewalks; improved curbs and gutters;
can ensure safety by design. Boulevards feature
canyon. In the fall and winter, some restaurants placed as dividers, protecting people walking. and a design for slower speeds. Angled, nose-
deep sidewalks with landscaping that allow heavy
may leave some tables outside under tents or They can also function to capture run-off storm in parking is found on both sides of the street
pedestrian activity and spillover from adjacent land
yurts, like at Root’s, with heat lamps. The center water that would normally flow through a gutter. and adds an extra layer of protection between
uses like cafes and restaurants. Parking on both
of the Park can be transformed into an ice skating Typically, due to the narrow nature of woonerfs, pedestrians and vehicles.
sides of the street will provide a buffer between
rink for people to hang out with friends and drink cars are not allowed to park along a woonerf,
people on the sidewalk and traffic in the street.
hot chocolate or do Christmas shopping at the otherwise auto-traffic would not be able to flow. Due to the slower speed of traffic on these smaller
See page 4.10-4.11 for more details on design
local boutiques on the periphery. streets, sharrows (bicycle lanes that share the
specifications.
CRANDALL AVE.

Other laneways are created for pedestrians and same part of the street as cars), are used for
ZENITH AVE.

The Park’s open concept and flexible design will cyclists only. These tend to be even more intimate bicycle paths. Additional bicycle infrastructure is
Walkable urban design expert Jeff Speck talks HUDSON AVE
allow it to be used through all four seasons. It will passageways and unique spaces. See page 4.12- found in the form of bicycle racks. Streets intended
about how boulevards create real estate value.
be a rich and varied environment that can change 4.13 for more details on design specifications. for improved east-west connection are Gunn, Elgin,
3000 S

They create lovely environments where bland, high 3010 S

and adapt to different needs. While seasons Miller, Woodland, and 3205 South.
speed arterials normally exist. They are desirable 3045 S

change the spaces remains constant as the center

places where people can easily stroll or bike, but 3060 S

of prime activity for the City of Millcreek year-

they also work for cars and buses. 3115 S

round.
3150 S

1100 E
KEY PLAN

HIGHLAND
ONE WAY MILL PARK ONE WAY PEDESTRIAN
DRIVE
RICHMOND PATHWAY
STREET
Cross Section of Millcreek City Center

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04 URBAN DESIGN MILLCREEK CITY CENTER MASTER PLAN

SIDEWALK & ENVIRONMENT

BUILDING NAME

5’ 4’ 3’
Activity Circulation Amenity
Zone Zone Zone

The Boulevards and Neighborhood sidewalks will be

primarily used for walking, dining, and shopping. With
those activities, there should be high visibility and
ACTIVITY
transparency into the storefronts. Retail stores should
have beautiful and interesting displays that cause
people to stop and look.

Sidewalks will be present on every street with

vehicular traffic. Crosswalks will be available at every
CIRCULATION intersection. With the proposed street grid-pattern,
this will make it easy for people to get from point a to
point b in the most direct way and encourage more
people to take trips by foot. Roundabouts may be used
on Highland Drive (see more on pages 5.20-5.21).
AMENITY
BOULEVARDS AND NEIGHBORHOOD STREETS Boulevard and neighborhood streets will have
an abundance of trees, benches, public art, trash
receptacles, unique lighting, and other street furniture
which make using these spaces very inviting.

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04 URBAN DESIGN MILLCREEK CITY CENTER MASTER PLAN

LANEWAYS/ WOONERF/ PEDESTRIAN PATH

10’ 10’
Amenity Circulation
Zone Zone

Pedestrian paths found on laneways and on woonerfs

are like streets dedicated to solely active transportation.
These spaces are invitations for human-scale street life
ACCESS to spring up. They will likely have stoops and building
entrances and access. These may also fulfill delivery /
service needs of buildings to be considered on a case
by case basis by Millcreek City if no negative impacts to
pedestrians can be mitigated through unique design.

These streets promote active transportation. They can

CIRCULATION
allow people to quickly and efficiently move through
the City Center and follow what might be natural desire-
lines. They allow one to go from point A to point B in the
shortest distance possible and their low-impact use make
them perfectly suited for interior block placement.
WOONERF LANEWAYS/ PEDESTRIAN PATH
AMENITY In addition to street trees and vegetation in pots and
planters, benches or tables, lights, mailboxes, or public
art might decorate and amenitize the space. Murals that
highlight the Millcreek’s history and natural setting can
also adorn interior walls to these spaces.
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04 URBAN DESIGN MILLCREEK CITY CENTER MASTER PLAN

PAVING AND PAVERS BIKE RACKS

C. STREETSCAPE ELEMENTS
Calling directly on the materials from the Active transportation infrastructure such as
BRANDING / IDENTITY / AESTHETICS LANDSCAPE THEMES
surrounding canyon environment, granite pavers bike racks can go a long way in encouraging
The City Center should have a consistent brand The City should also establish a set of landscape as accents in plazas and on sidewalks. They can and making it possible for people to realistically
and aesthetic that identifies it as a distinctive guidelines. These guidelines will indicate be set on a sand bed, with a 4” concrete sacrificial use this alternative form of transportation.
destination. This branding should highlight the acceptable/unacceptable materials; paving types; slab beneath to prevent differential settling, Furthermore, the design and shape of bike racks
uniqueness of Millcreek and emphasize the City’s recommended plant lists, planting minimums, protecting them against freeze-thaw cycles of are flexible enough that they can further translate
“connected by nature” slogan. Natural, aesthetic green buffers; types of parks, playgrounds, and subsurface moisture and changes in soil pressures Millcreek’s brand and identity. The shapes can
elements such as trees (wood), creeks (water), their amenities; street furniture; bike paths, and and bearing capacities. Brick and colored concrete take on an organic or adventurous spirit and add
and mountains (stone) should be present. These bike parking. All elements should reference the can be used in other accent areas like crosswalks vibrancy to the streetscape.
themes should be repeated throughout the Center “connected by nature” theme. to add artistic flair and to promote safety.
in its public spaces, streetscapes, architecture, and
in wayfinding, and could also be incorporated in ROOFTOPS
the village centers identified in the City’s General A defining characteristic of Millcreek is its
Plan as well. excellent views of the Wasatch Mountain
Range. Encouraging visual access through the
STREETSCAPE AMENITIES / URBAN DESIGN development of public and private rooftop spaces
ELEMENTS
is highly recommended. This is especially true for
The City Center will require a defined set of sites fronting Mill Park, but is also suggested for
streetscape elements, including furniture (e.g. locations throughout the City Center. The benefit
benches, garbage bins, bus shelters, bollards, of developed rooftops goes beyond good views.
tree grates, bike racks, planters), lighting, signage Landscaped and green roofs can help reduce
guidelines, gateway design, art, placemaking, and the heat island effect found in many urbanized
wayfinding. These elements should be consistent cities. Rooftop activity on shorter buildings can BOLLARDS TRASH / RECYCLE RECEPTACLES
with the aesthetics discussed above to enhance help put eyes on the street, increasing safety Bollards are recommended in key parts of the City
the experience of people walking and biking, Trash cans and recycle bins are a necessary part of
and psychological connectivity to the rest of Center where there might be conflict between
while also creating a cohesive identity for the City any clean, vibrant public space. Beyond their utility,
the community. The City should incentivize the drivers and pedestrians. Clean, stainless steel
Center. they can be an opportunity to promote the City’s
development of public rooftops as additional bollards evoke a contemporary feeling, while also
brand even further. This might be through the use
amenity space. For more information on developer being easy to install, and remove if needed. These
of similar natural materials like wood, or it might
incentives, see page 3.27. can be used at key locations like woonerfs where
incorporate the City’s logo and slogan.
separating modes of transportation is needed.

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04 URBAN DESIGN MILLCREEK CITY CENTER MASTER PLAN

BENCHES
This material can stand up against the elements
STREET LIGHTS AND LAMPS Great spaces provide excellent places for people to
especially in Utah’s four-season climate. Wood
pause and relax. Benches in the City Center will be
Having consistent street and plaza lamps is accents can tie in the character of the area and
in areas where people might naturally wait or sit
important to create the sense of a coherent City can be added to create more warmth and comfort
to enjoy the outdoors. The look and feel of these
Center. Lighting can often unify an area across during cold weather. These bench styles draw on
public realm amenities will reflect and reinforce the
several blocks and signify that you are in a the connected by nature character of the City,
overall identity of the City Center as a place that
particular district or part of the City. while the more modern metallic elements make
connects with nature. Steel, durable benches with
them feel contemporary.
a modern design are recommended.
Drawing on the theme of modern and natural,
lamps that are dark sky friendly should be
considered. In certain areas, full cutoff or lights
that have zero light distribution above an angle
of 90 degrees above nadir (sun angle), should be
used. As Mill Park becomes a place for people to
gather on summer evenings, providing safe well-
lit spaces, while preserving the ability to see the
stars can create a unique public space.

Lamps that have the ability to have two heads

attached will be helpful for illuminating foot paths
that may be crossing or intersecting. They can
also provide broader more vertical light projection
to plazas and terraces so people can see each STREET FURNITURE
other at night. A warm light tone of 3000 to 3500 They can function as meeting spots. People can
Benches are great for sitting alone or with one
kelvin is recommended for bulbs or LEDs. Smaller work at the tables. To tie in with the modern feel
other person, but street furniture like bistro table
areas can benefit from lamp styles that can also of the benches, stainless steel or metal materials
sets with movable chairs provide the infrastructure
stand alone. It is recommended to use a modern, are recommended and will be more durable to
for more lively activity and can accommodate
simple style of lamp that blends well with natural weather rain or snow. The City should also create a
larger groups. These can be set out near office
elements like landscaping and trees, but also that strategy for taking in the street furniture at night,
buildings so that in spring, summer, and fall,
correspond with increased development of taller or using a tasteful solution to chain it together to
people can come out and enjoy their breakfast or
buildings. prevent theft.
lunch in the outdoors.

The style should also allow the City to attach

signage to lamp posts about upcoming local
events or branding that announces the City
Center area.

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04 URBAN DESIGN MILLCREEK CITY CENTER MASTER PLAN

NATIVE SHRUBS AND PERENNIALS ORNAMENTAL GRASSES

LANDSCAPING Native shrubs and perennials will tie the flora Grasses provide a timeless natural look that
STREET TREES of surrounding mountains and canyons to the pairs well with traditional and contemporary
City Center. Smart native low water use planting architectural styles. A selection of water-wise
Street trees create a lush overhead experience
solutions require fewer natural resources to grasses provide year-round interest when they are
that protects pedestrians and defines roads and
maintain and help create an identity of place. kept long during the winter and cut back in early
pathways. They increase comfort in outdoor
These plants could include sages, serviceberry, spring. Grasses like regal mist and Karl Foerster
spaces encouraging pedestrian activity and
yarrows and penstemons. should be considered.
decreasing the heat-island effect. These trees
should be pruned up to provide a tall canopy and
clear visibility. Special care to species selection is
necessary to select trees with strong dense limbs
that avoid breakage commonly seen in faster
growing weak trees.

LARGE PARK TREES SMALL ORNAMENTAL TREES

Park trees are crucial to the definition and Ornamental trees tend to be smaller and more
enjoyment of park spaces. These trees provide the showy, their seasonal blooms and bright fall foliage
necessary shade and cooling on hot sunny days. colors create interest for pedestrians and park
These same trees drop their leaves in the colder users at different times of the year. A number of
months opening these spaces up to the warming native and low-water use trees are available and
sun. Such trees as sycamores, lindons and oaks include redbuds and maples.
could be considered.

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 ZENITH AVE.
04 URBAN DESIGN MILLCREEK CITY CENTER MASTER PLAN

HUDSON AVE
EXISTING SIGNAGE

The City Center site of Millcreek is dotted with The Tres Hombres sign has a completely different 3000 S
its own flavor of signs. It has a handful of iconic style, but is equally iconic to those traveling on
signs like the Villa neon display that adorns Adib’s Highland Drive. This sign shows how the business 3010 S
Rug Gallery. This bright and colorful sign provides owners creatively adapted a previous mechanic sign
nostalgia for those who have lived in Millcreek and with three figures for their own restaurant name.
remember the old movie theatre. They add a touch Each of these signs, as well as others, contribute 3045 S
of history that should be retained. to the unique heritage of the area which should be Fault Line

retained as part of the City Center identify.

3060 S

3115 S

3150 S

WOONERF
WOODLAND

3205 SOUTH

Locally-owned Crown Burgers is not specific Billboards and other outdoor advertising signs
to Millcreek, but it does have a bright and that are oriented to solely automobile traffic are
recognizable sign that evokes the similar vintage- also present on the major arterials around the City
feel of the Villa sign. Signs like these should be Center. While these provide minimal revenue to
preserved throughout the City Center area to retain the City, they often block important view corridors.
its eclectic heritage and to be integrated with Future signage should intentionally be accessible
future new small business signs. to people traveling by all modes and that better

1100 E
integrate and enhance the environment within the
new City Center.

1300 E
EXISTING ICONIC SIGNS EXISTING BILLBOARDS
Faultorientation)
(including sign Line

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 ZENITH AVE.
04 URBAN DESIGN MILLCREEK CITY CENTER MASTER PLAN

HUDSON AVE
FUTURE SIGNAGE

The City should create an ordinance that has a DISTRICT AND MONUMENT 3000 S
multi-faceted, high quality approach to signage.
These ordinances should be sensitive the specific District signs that represent Millcreek’s 3010 S
needs of the different urban contexts. New signs characteristic brand and identity should be
should be deeply integrated into the overall urban should be placed at the edges of each district.
design of the City Center and be emblematic of This will signal a sense of arrival and a change of 3045 S
environments. These signs should have the look Fault Line
the City’s connected by nature brand and identity,
while also allow for some eclecticism. and feel of other natural and artistic material
elements present throughout the City Center. 3060 S

3115 S

3150 S

WOONERF
WOODLAND

3205 SOUTH

WAYFINDING STOREFRONT

Signs that help people navigate should be present Within the City Center, signage for local businesses
throughout the City Center. They should be sized and upcoming events should be encouraged. These
to target people on foot or bike, as well as those in smaller signs will be designed to be seen in close
cars. Placed at key intersections, junctions, or entry proximity and will have more detail. Blade signs,
points into the City Center (such as bus stops), they sandwich boards, and even community boards for

1100 E
can orient visitors and assist them in finding their free expression are examples of signage that is
intended destinations. The sign materials should encouraged to enhance the pedestrian realm while
be uniform and also draw upon the larger district also supporting the eclectic and unique brand of
signage natural theme. the City Center.

1300 E
POTENTIAL FUTURE DISTRICT SIGNS POTENTIAL FUTURE MONUMENT SIGNS
Fault Line
POTENTIAL WAYFINDING SIGNS POTENTIAL FUTURE STOREFRONT

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 3000 S
04 URBAN DESIGN MILLCREEK CITY CENTER MASTER PLAN

3010 S
LANDMARKS

EXISTING
Aside from signs like those at the Villa or the The envisioned City Center has several landmarks
3045
bowling alley, the current City Center area is light that can help orient people on the site. The Mill
Fault Line
on physical landmarks that are easily identifiable. Wheel at the south end of Mill Park is a natural
This contributes to a “placelessness” feeling in place for people to meet, especially for those riding
this part of the City. There is nothing distinct or transit or getting dropped off. The Civic Building
remarkable, no point to rally around, no defining (not pictured) will be another distinct feature in 3060
feature that is unique to the City of Millcreek and its Mill Park. The Millview Splash Pad and Grandeur 4
City Center. Boulder, named after local trails and peaks, can
function as landmarks, especially for friends and
FUTURE families gathering.
Landmarks are community assets for many reasons. 3115
They can be gathering points for meeting. Often While the food truck plaza in the Neighborhood
they will contain elements that pay tribute to a District does not have a physical monument to act
city’s heritage and history and can, help evoke civic as a landmark, through tactical urbanism strategies
pride. Intentional planning for future landmarks such as public art and temporary street furniture,
enables them to be part of the larger placemaking 3150

WOONERF
as well as repeated use of the space, the temporary
strategy to make otherwise placeless public spaces plaza itself could become a contemporary
more memorable. Landmarks that have existed for landmark. It also is collocated with an easily
long periods become an essential part of the urban identified community landmark being connected
fabric of a place. They can give spaces meaning to the Villa Theatre, which is well-known to area 3 WOODLAND
for those who interact around them and aid in residents over many decades. 2
wayfinding.

1 2
3205 SOUTH

1
Large Mill landmark on 3300 S Families can meet at Millview Splash Pad

3 4
1100 E

0 FUTURE LANDMARK LOCATIONS

All ages can play at Grandeur Boulder Friends can meet for movies at Villa Plaza

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04 URBAN DESIGN MILLCREEK CITY CENTER MASTER PLAN

LANDSCAPING MONUMENT SIGN

PRIMARY GATEWAYS
1 2
Gateways demarcate entrances and provide a Strategically placed at the edges of the City Center,
sense of arrival. They should be located at strategic these gateways make it clear to vehicles, cyclists,
edges and attract people toward the City Center. and pedestrians, that they have now entered
As such, they should be prominent and distinctly Millcreek’s City Center. The sizes of each gateway
recognizable, allowing people traveling to quickly type should vary to be proportionate to people in
understand their location in context to the City as a cars, by foot, or on a bike, as well as to account for
whole. They should meaningfully interrupt ongoing pace of travel. The diagram below depicts some
flow to alert people they are entering a new basic features of how a roundabout design might
environment or transition, such as when they are work as a community gateway (see more details on
leaving Salt Lake City and entering Millcreek. page 5.18-5.19). Uniform landscaping can be used in medians that Monument signs literally and figuratively announce
lead to the City Center as a key strategy for making the transition from one part of the City (or from
There are four gateway features the Millcreek the City Center easily identifiable. The City should another City such as Salt Lake) into the Millcreek
can use to welcome its citizens and visitors to implement the landscape guidelines which outline City Center. These are recommended to be placed
the City Center including: uniform landscaping; specific trees, grasses, and shrubs that become at strategic corners of the City Center or in future
iconic, monument, and landmark signs; consistent recognizable to this area. For more information on roundabouts (identified on the map on page 4.23).
streetscape elements; and distinctive crosswalks. landscaping, refer to page 4.14. This subtle form The look of these signs should be consistent with
of branding can add to the feeling that one has the iconic landmark style of the Mill Park sign to
entered a distinct new environment, which places a create a cohesive and identifiable look and feel
specific emphasis on nature and landscape. throughout the City Center.

STREETSCAPE ELEMENTS DISTINCTIVE CROSSWALKS

2 3 4

3
4

Consistent application of streetscape elements is Distinctive crosswalks with natural or artistic

one of the most powerful ways to signify arrival materials can be placed at intersections in and
to and boundaries within a City Center. Urban around the City Center. While these should be
design elements such as lamp posts, lighting with present at all crossings, they should be specifically
banners, signage, street furniture and potted focused on the edges of the City Center. These
1 landscaping can line the streets and draw people’s may take the form of pavers and brick to match
attention toward the City Center. While visually the recommendations within Mill Park, or to reduce
powerful in a formal sense, these also often serve cost these crosswalks could be colored concrete,
functions such as safety, psychological noise textured (thermoplastic material) or painted
reduction buffer, reduction of the urban heat asphalt surfaces as well.
island effect and other important functions within
a City Center.
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TRANSPORTATION 05

CITY CENTER PLAN

 MILLCREEK CITY CENTER MASTER PLAN

05 TRANSPORTATION

BOULEVARDS

1300 E / RICHMOND ST

Richmond Street / 1300 East recommended cross section

FOUR-LANE BOULEVARD CROSS SECTION high-intensity activated crosswalk (HAWK) or

rectangular rapid flash beacon (RRFB) signals, and
A four-lane boulevard with bike lanes and a curb extensions should be part of a larger traffic
planted median is recommended on Richmond calming strategy at pedestrian crossings. The
Street / 1300 East. The proposed boulevard would sidewalk should be 6’ wide at a minimum with a
have a right-of-way of approximately 97 feet in similar width for a tree-lined park strip. Buildings
width. This is wider than existing right-of-way should front the property line and provide ground-
widths today, but would be required to achieve this floor activation to create a desirable pedestrian
boulevard design. See the subsequent sections in environment to encourage people to walk in this
this chapter for comparison between existing and area.
proposed right-of-way dimensions. The medians
would feature plantings, except at key intersections 3300 South is owned and controlled by UDOT.
where protected left turn pockets would be To the extent the State agency is willing to allow
provided. Recommended speed of vehicle travel is this type of boulevard, Millcreek should aim for
40 miles per hour along the four-lane boulevard. consistency and replicate the design on this large
BOULEVARDS NEIGHBORHOOD LANEWAYS Bike lanes would exist between travel lanes and arterial, which could reveal a latent demand for use
STREETS the sidewalk curb, and should include several feet by pedestrians and cyclists to use the corridor.
of buffering from traffic. Highly visible crosswalks,
UDOT ROUTE WOONERF ONE WAY COUPLET

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05 TRANSPORTATION MILLCREEK CITY CENTER MASTER PLAN

BOULEVARDS

HIGH
ANDL
DR

Highland Drive recommended cross section

TWO-LANE BOULEVARD CROSS SECTION at the back edge of the parallel parking curb. 58
feet is required to accommodate the travel lanes
Highland Drive is recommended to become a and on-street parking, and 6’ for sidewalks and an
key community boulevard, signaling arrival to equal width for park strips where feasible.
Millcreek and inclusion by users of a wide variety of
transportation types. Two travel lanes will continue Parallel parking would be allowed on both sides
to support car traffic with anticipated speed of 35 of the road to provide free (2 hour) parking to
miles per hour, while new striped bike lanes would support active use of the City Center. Similar to the
be provided between on-street parking and travel four-lane boulevard on 1300 East, high visibility
lanes. After reviewing numerous configurations crosswalks with bulb-outs, HAWK or RRFB signals,
with Millcreek City, this design was chosen to help and curb extensions would be part of a broader
improve visibility between cyclists and automobiles traffic calming strategy. Landscaping on the
and to allow bike lanes to be plowed in the winter, sidewalk and in the median should be plentiful and
prolonging their use throughout the year by create an inviting environment for pedestrians.
cyclists. Roundabouts are recommended at Miller Avenue
BOULEVARDS NEIGHBORHOOD LANEWAYS and Elgin Avenue to act as gateways and
STREETS The recommended cross section above is intended support ease of connection between surrounding
for implementation along as much of Highland neighborhoods and the City Center by allowing
WOONERF ONE WAY COUPLET Drive as right-of-way permits. In areas where freedom of movement and slow pace of vehicle
the right-of-way narrows, the park strip can be travel at these key intersections.
removed allowing sidewalk placement directly
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05 TRANSPORTATION MILLCREEK CITY CENTER MASTER PLAN

NEIGHBORHOOD STREETS

Recommended Neighborhood street cross section

NEIGHBORHOOD STREET CROSS SECTIONS Re-alignment of neighborhood streets to connect

the City Center street grid is highly encouraged
The neighborhood street cross section is wherever possible as future projects take shape.
recommended on 3205 South, Woodland Avenue,
Miller Avenue, Gunn Avenue, and Elgin Avenue. Some flexibility is allowed depending upon right-
Recommended right-of-way on these streets of-way available at the time of implementation.
will be 88 feet to accommodate two travel lanes, Bike lanes are encouraged on east-west
nose-in angled parking and 8 foot sidewalks plus neighborhood streets where angled parking is not
5 foot park strips (which are optional). Each of the present; where angled parking exists, sharrows or
existing right-of-ways for the future neighborhood traffic lanes painted with a bike lane in the middle
streets is unique, allowing for interpretation by and are meant to be shared by cars and bicycles,
Millcreek City to determine how to best implement will be used to alert drivers to the potential
the intent of the recommended Neighborhood presence of cyclists. Angled parking is encouraged
Street cross section. The overall intent is to create to support desired neighborhood uses such as
a calm, inviting neighborhood environment, where residential and neighborhood retail, while also
BOULEVARDS NEIGHBORHOOD LANEWAYS
street trees will be planted on the sidewalk in separating people walking from car traffic. Parallel
STREETS
grates intended to create a shaded environment, parking could also be allowed in certain instances.
while also creating a perception of quiet Easements or dedications may be negotiated and
WOONERF ONE WAY COUPLET neighborhood streets. Vehicle speed is intended to could allow for decreases in parking requirements
be 25 miles per hour on neighborhood streets. and front yard setbacks.

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05 TRANSPORTATION MILLCREEK CITY CENTER MASTER PLAN

LANEWAYS

Recommended Laneways street cross section

LANEWAYS CROSS SECTION where cars, pedestrians, and cyclists should be.
Not all laneways require designated bike lanes. On
Laneways are intended to be loosely uniform, with busier laneways, striped bike lanes are encouraged.
opportunity for variety depending on the needs The City may also designate bike lanes where
of each laneway as future development takes having additional delineation would be helpful
shape. The overall intention is to create an inviting, to visually link to a larger connected network
low-stress walking and cycling environment to throughout the City and the region such as the
connect the blocks within the City Center. In some Millcreek and Parley’s Trails.
cases where delivery/loading access is needed,
temporary parking may be permitted on certain Widths of twenty-five feet for through vehicular
laneways to accommodate deliveries or pickups. traffic would allow space for fire trucks, delivery
BOULEVARDS NEIGHBORHOOD LANEWAYS
trucks, and other large City vehicles such as
STREETS On all laneways, streetscape amenities should garbage and recycling trucks. New projects should
include lighting, trees in grates, bollards, and may negotiate access with the City with the goal of
WOONERF ONE WAY COUPLET include raised or flush curbs. Different pavement creating laneways which should focus on creating a
materials can be used to distinguish between safer experience for cyclists and pedestrians.

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05 TRANSPORTATION MILLCREEK CITY CENTER MASTER PLAN

WOONERF

Recommended Woonerf street cross section

WOONERF CROSS SECTION

Woonerfs are shared streets that are typically Green space, street furnishings, and human-scale
curbless and provide safe access for all users. design elements (lighting, signage, etc.) should be
Eliminating curbs indicates that pedestrians have added to create a comfortable environment for
access to the full space of the street and vehicles both pedestrian movement and social activities.
must proceed cautiously, likely below 10 miles per Narrow right-of-way and small or nonexistent
hour. Bollards may be used to demarcate edges setbacks relative to adjoining buildings define an
NEIGHBORHOOD LANEWAYS of the drivable way for added safety. Intermittent
BOULEVARDS enclosed urban space which will be inviting. There
STREETS on-street parking can be permitted. Traffic calming should be limited access points to driveways and
elements such as chicanes, which narrow and garages to limit the potential for conflict.
WOONERF ONE WAY COUPLET curve roads, and speed bumps and tables, can limit
vehicles to lower speeds and promote safety in
mixed-mode conditions.

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05 TRANSPORTATION MILLCREEK CITY CENTER MASTER PLAN

ONE-WAY COUPLET AT MILL PARK

Recommended One-Way Couplet cross section

ONE-WAY COUPLET CROSS SECTION The street is designed to accommodate one-lane

of through automobile traffic, in a single direction
A one-way couplet is a pair of two one-way streets. of travel, with parallel parking on both sides of the
In the City Center, this pair would be joined at street. The purpose of this narrow street is to allow
the north and south side, forming a circular one- access and free (2 hour timed) short-term parking
way loop that provides vehicular access to Mill to Mill Park and buildings facing it to encourage
Park as pictured on the left. Access into this loop activity. Creation of a highly desirable pedestrian
would be from a right turn in along 3300 South or environment for day to day use, as well as large
from one of the neighborhood streets to the east, events, is encouraged with significant landscaping
laneways to the west (for pedestrians), as well as with trees on both sides of the street to provide
BOULEVARDS NEIGHBORHOOD LANEWAYS from the woonerf to the north. The return loop at a comfortable area for pedestrians. Pedestrians
STREETS the southern edge would allow cars to continue to can use raised crosswalks and at regular intervals
circle through the Center without having to re- to access the Park from the outer sidewalk. A one
WOONERF ONE WAY COUPLET
enter traffic on 3300 South. Vehicular travel speed way street also makes it more comfortable for
is anticipated at 9 miles per hour in the one-way pedestrians to cross.
couplet, with signage that grabs drivers’ attention.
| PAGE 5.1 2 M A R C H 201 9 | PAG E 5 .1 3
05 TRANSPORTATION MILLCREEK CITY CENTER MASTER PLAN

EXISTING VS. PROPOSED RIGHT-OF-WAY HIGHLAND DRIVE AT 3300 SOUTH - EXISTING PROPOSED CROSS SECTION

The side-by-side comparisons of existing and EXISTING STREET WIDTH CURB-TO-CURB*

proposed streets in the City Center provides a sense Midblock At Intersection
of how much right-of-way is needed to implement
1300 East 60’ 67’ - 74’
recommended cross sections. The same street may
have various widths at different points in the project 3300 South 63’ 77’
62’
area. The table at right describes approximate field Highland Drive 50’ 62’
measurements of curb-to-curb street widths taken
3205 South 28.5’ / 81’
by Fehr & Peers Traffic Consultants during existing
conditions analysis and are intended for planning Woodland Avenue 34’ /
purposes only. These illustrations are not intended Miller Avenue 29.5’ / 82’
to be comprehensive, but rather give a sense of the
Gunn Ave (Villa) 28.5’ /
detailed study and analysis that will be required at
the time of implementation. *Approximate field measurements. Not intended for
design or construction use. MILLER AVENUE MIDBLOCK - EXISTING PROPOSED CROSS SECTION
Particular emphasis is placed on the neighborhood
streets, which have the greatest degree of variability
Millcreek City may negotiate with property
in terms of right-of-way available. The recommended
owners regarding parking requirements, setbacks,
cross section for this portrays the overall intent
dedication of property or creation of easements to
of a roadway which supports the intent of the
achieve the proper balance of the right-of-way and
neighborhood streets, for a low stress, quiet, right- 50’
its goals in achieving the City Center vision and
of-way supporting simultaneously the needs of
associated recommended cross sections.
people walking, cycling and driving cars. While
29.5’
nose-in, angled parking is recommended to support
Laneways and woonerfs have not been illustrated
residential and other uses, this may become parallel
because these streets will be newly created and
parking, or provide no on-street parking, depending 78’
will be negotiated on a case by case basis as
on what is achievable with the right-of-way and what
development occurs.
will best meet the needs of a proposed project, as it
aligns with the goals of the City Center.
3205 SOUTH MIDBLOCK - EXISTING PROPOSED CROSS SECTION
1300 EAST AT 3300 SOUTH INTERSECTION - EXISTING PROPOSED CROSS SECTION

74’ 28.5’

40’

91’
97’ 78’

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05 TRANSPORTATION MILLCREEK CITY CENTER MASTER PLAN

ON-STREET PARKING
On-street parking encourages the “park once”
concept, which means visitors arriving by vehicle
can find a single parking space for their entire
visit and walk to the rest of their destinations
throughout the City Center. Free on-street parking
(with timing restrictions) will be provided on
Highland Drive, the one-way couplet and smaller
east-west neighborhood streets. On-street
parking can be a useful traffic management tool
by acting as a barrier between through-traffic
and pedestrians on the sidewalk. It can create a
narrower road, reducing motor vehicle speeds. It
can help create a healthy downtown environment
by promoting frequent activity since there is often
high turnover and use. On-street parking can
also help save land that might be needed for it
elsewhere, making it a strategy for more efficient
land use.

INTEGRATED PARKING STRUCTURES

For off-street parking, the City Center will avoid
surface lots which deactivate urban spaces, and
instead incentivize developments to integrate
parking within, behind, or below new buildings.
Shared parking arrangements among projects with
varied hours and uses is also highly encouraged.

Wrapped parking is becoming a common model of

structured parking where active land uses such as
retail and office physically wrap the exterior of a
structure. This design obscures structures and can
also provide convenient access to the surrounding
buildings. If parking cannot be wrapped or placed
beneath the building, placing parking structures
behind buildings so that they don’t front the street
is the next preferred alternative. If structures must
face the street due to site constraints, design
strategies to obscure the appearance of empty
parking garages, sloped ramps and other unsightly
INTEGRATED STRUCTURE ON-STREET PARKING
visual detractions will be recommended including
green screens, murals or public art.

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05 TRANSPORTATION MILLCREEK CITY CENTER MASTER PLAN

BICYCLE LANES
Bike lanes should be added on wider streets,
boulevards, and where appropriate or needed for
safety. They can be located outside of parking,
which can make it easier for turning vehicles to see
oncoming cyclists and also allow modes traveling
TO MCCLELLAND TRAIL/
SALT LAKE at similar speeds to be next to each other. With
a five-foot width, there could be extra room for
buffering between the bike and auto lanes. The
width also provides a comfortable, low-stress
bicycle facility. Smaller neighborhood streets,
laneways, and woonerfs would also be accessible
to cyclists and bike lanes could be added on a case
by case basis depending on site conditions.

CYCLING ENHANCEMENTS
Another way to encourage cycling is to add bicycle
enhancements and support infrastructure. For
example, bike racks should be located throughout
the City Center. Additionally, all buildings lining
Mill Park should provide covered or indoor storage
including bicycle storage cages. Service stations
for quick tune-ups or to fill flat tires can make
it more likely people will want to ride a bike.
Providing infrastructure to extend the period
people feel comfortable such as well-lit paths
and plowed lanes for night and winter riding are
recommended as well. A bike share program within
the City Center is also highly encouraged.

PEDESTRIAN PATHS
Pedestrian walkways and paths should provide a
delightful experience for those traveling on foot.
Benches and places to sit can provide places
of reprieve. Art, storefronts, and signage at
human-scale should dot these networks and be
human-scaled. Crossings should be removed at
FUTURE POTENTIAL roundabouts to increase safety. Walkways should
TRAIL CONNECTION
be well-lit and crosswalks should be well-defined
TO HOLLADAY
to allow people to follow natural desire lines, or the
natural path they might want to take. Investing in
pedestrian infrastructure encourages more trips
FUTURE TRAIL CONNECTIONS BICYCLE LANES PEDESTRIAN PATH
to take place on foot, inviting increased use by
visitors and surrounding neighborhood residents.

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05 TRANSPORTATION MILLCREEK CITY CENTER MASTER PLAN

ROUNDABOUTS
The City is considering how it might implement
the use of roundabouts at two intersections along
Highland Drive. They have engaged with traffic
engineers to determine the feasibility and design.

BENEFITS
Studies have shown that roundabouts can be safer
for vehicle interactions than traditional stop signs
or signal-controlled intersections by reducing
injurious crashes. This is due to the lower travel
speeds cars use to pass through roundabouts,
the elimination of the need to “beat the light,”
and the fact that automobiles travel in one

HIGH
direction. Another more intuitive benefit is that
roundabouts reduce delay and improve traffic

LAN
flow by moving cars through an intersection more

D DR
quickly. In the long run, roundabouts can be less
expensive than traditional signaled intersections
because they eliminate hardware, maintenance,
and electrical costs associated with traffic signals.
Finally, the center of roundabouts can be utilized
for landscaping, placing monument signs, and
reflecting the City Center identity.

CHALLENGES
Dual lane roundabouts do not have the same
safety record as single-lane roundabouts due
to the confusion about entering, yielding, and
switching lanes. Furthermore, pedestrian and
cyclist crossing can be difficult and feel unsafe
due to lower visibility. Pedestrians with visual
impairments do not have the same audible signals
to cross and may find it challenging to know
when cars are coming. However, several models
do comfortably accommodate multiple modes of
transportation as illustrated in the photos. They
include outside cycle lanes and crosswalks at
tapered points in the road. Another consideration,
however, is space. Roundabouts often require even
greater right-of-way space. Those that are not
designed for separate bicycle lanes already have
diameters that reach up to 150 feet for single lanes
and 200 feet or more for dual-lanes.

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05 TRANSPORTATION MILLCREEK CITY CENTER MASTER PLAN

UTA BUS ROUTES & ENHANCEMENTS

The City Center is well-accessed by three bus
routes which travel throughout the valley; two of
which have 15 minute peak service and the third
has 30 minute peak service. These buses access
all TRAX lines, the FrontRunner, the University of
Utah, University Hospital, Westminster College,
and downtown Salt Lake City, in addition to several
smaller neighborhoods and cities. Currently, bus
stops are the City’s opportunity to show how it
supports transit ridership because they function
as a front door for riders. If they appear inviting
this will encourage people to use the system.
Existing bus stops should be improved to provide a
better environment including ADA ramps, shelters,
seats, solar-powered lighting, trash and recycling
receptacles, as well as variable message boards.
The City should work with UTA to explore how
stops may change or relocate as the City Center
develops.

STREETCAR & BRT FEASIBILITY Highland Drive has been selected as a multi-modal
street, whose right-of-way will be rebalanced
to accommodate people walking, cycling and
utilizing public transportation. The new right-of-
way features a travel lane for vehicles in either
direction and the center turn lane is provided
where necessary for left turn movements and
is a planted center median at other locations.
See page 5.5 for more detail on Highland Drive.
The bus enhancements recommended in this
plan (enhanced stations, on-street parking
and locations for future bus pull-out locations)
would allow for future Bus Rapid Transit (BRT)
along this corridor if this option is considered. If
streetcar or other fixed rail transit along Highland
is reconsidered at a future date (as the residential
population at the City Center grows) the new
BUS ROUTE 213 BUS ROUTE 220 UTA BUS 39 right-of-way allows for conversion of the center
lane to become a fixed railway corridor on either
Highland Drive or 1300 East, depending on which
MILL PARK TRANSPORTATION STOP RIDE SHARE PARKING
alignment would be selected. The City Center and
local community could greatly benefit from this
additional transit option.

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05 TRANSPORTATION MILLCREEK CITY CENTER MASTER PLAN

MILL PARK TRANSPORTATION STOP

The southern edge of Mill Park is an ideal location
for a multi-modal stop for buses and ride sharing
(Uber and Lyft) pick-up and drop-offs. It is a
central location that can make it easy for people
to connect between transit, walking, and cycling.
This prominent location will include a bus pull-out
with potential for level-boarding bays if BRT were
to be provided along this section of 3300 South.
The activity of buses at the stop will create some
friction to slow down automobile speeds, making a
safer environment for all. The strategic placement
of the stop re-balances access to the City Center
by all modes.

The stop will have wayfinding signs indicating how

many minutes to different parts of the City Center
and other nearby amenities by foot, bicycle, bus, or
car. Bike parking and docked or dock-less bicycle-
shares should also be available in the immediate
vicinity. The Mill Wheel landmark sign will be set
back further in the Park to provide ample space
for the stop and its expected activity. Small kiosks
with to-go items like coffee or magazines should
be situated here. Overall, the City should build this
stop to facilitate multi-modal connections today,
and also with future transit possibilities in mind
such as bus rapid transit or a future streetcar line.
RIDE SHARE
As ride sharing continues to influence the
transportation landscape, Millcreek should plan
for how people using this service will access the
City Center. It provides greater access to a wider
variety of users at a lower cost to the public for
necessary infrastructure. Several of the free on-
street parking stalls at the one-way couplet will be
provided for quick turnaround parking needs of
ride share and taxi companies. Such spaces should
be designated for five minute parking. Other areas
BUS ROUTE 213 BUS ROUTE 220 UTA BUS 39 near major City Center landmarks could also have
a few stalls dedicated to temporary parking.

MILL PARK TRANSPORTATION STOP RIDE SHARE PARKING

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PHASING AND IMPLEMENTATION 06

CITY CENTER PLAN

MA R CH 2 019 | PAG E 6 .1
06
03 PHASING &
IMPLEMENTATION
MILLCREEKMILLCREEK
CITY CENTER
CITY
MASTER
CENTERPLAN
MASTER PLAN

A. IMPLEMENTATION STRATEGY RECOMMENDATIONS

DEVELOPMENT REGULATIONS CREATION OF PUBLIC SPACE

Implementing the full scale of the Millcreek The City should prioritize acquiring
City Center Master Plan will take time, but the improvements to public spaces to set the standard
Mill Park Open Space
development of individual sections or elements for future developments and show the greater New Civic Facilities
can occur incrementally to achieve the vision development community the City’s commitment
established in this Plan. To ensure development to realizing the vision in this Plan. This approach
occurs in alignment with this Plan, the City must helps create projects and places that Millcreek
Movies at the Villa
review and update its development regulations to citizens can get behind right away which can lead
ensure they align with this Master Plan. The City to support of other projects down the road. Early
Economic Development team is currenlty working opportunities for creating public space with a high
on determining how it can assist in incentivizing impact and low initial investment will be important.
growth and development to support and coalesce Creation of a food truck plaza behind the former
around the City’s goals at the City Center. A Villa Theatre is the first recommended example to
process to develop a City Center Form Based encourage community members to begin thinking
Code approach is in process as this plan is being about the City Center area as a place where the
finalized. Its intention is to identify specific details community gathers. Three key projects identified on the Impact vs. Investment Matrix
of how the concepts presented in this plan can
be realized through specific placemaking design BRANDING AND MARKETING
standards such as building form.
PRIORITIZED INVESTMENT
Millcreek’s “connected with nature” slogan
The matrix above illustrates the relationship Millcreek should consider a series of low investment
DEVELOPMENT INCENTIVES undergirds much of the vision in this plan. It
high impact projects and actions early on to create
between impact and investment and how Millcreek
should be carried forth and reinforced in all of the
might balance project implementation over the next excitement and build support for the larger City
The City Center is in a good location for financial City’s actions. A branding campaign or marketing
ten years and beyond. City staff and the community Center vision. For example, allowing food trucks
incentives given its position within a Federally- strategy would ensure citizens of Millcreek fully
can use this framework to build consensus around to do business in the parking lot behind the Villa
identified Opportunity Zone. The Existing understand the City’s vision for their City Center
its future and to identify projects outlined within building and programming movie showings on
Conditions Section of this document outlines and agree with the methods for implementation.
this Plan that will have the greatest potential the wall is an inexpensive way to activate the
the current development interest spilling over Social media and other digital means are powerful
community impact with best value for the money underutilized space after hours and create the
from areas such as Sugar House is relatively tools to publicize the vision for the City Center and
spent. Three such projects described in this plan are beginnings of an 18 hour City Center. These types
significant and trending in a positive direction highlight future events and activities.
placed on the matrix to give an example of how all of activities create visibility, and alert residents
for the City Center. In order to catalyze growth
projects may be analyzed when making decisions to the idea the Millcreek City Center is being
and development at an expedited pace, the City The City should aim to take on a robust process of
for implementation of the City Center. This matrix is revitalized. Successful revitalization often happens
will need to identify Economic Development building community identity around the new City
intended to provide a framework for sound decision with small changes initially which interests local
incentives to create additional growth. The City Center, beginning with small-scale, community-
making. It provides flexibility to make the decisions community members and in turn spurs greater
is also considering the creation of a Community focused events which with Millcreek residents
as opportunities arise for implementation of the interest over time. These catalytic projects pave the
Reinvestment Area to allow for Tax Increment will identify. One such example is the creation of
City Center vision. Initially projects with highest way for more significant projects requiring greater
Financing to provide incentives to realize the types outdoor movies or markets / Food Truck events to
impact and lowest investment should be targeted investment and more time, but which are important
of quality development that Millcreek would like to be held behind the former Villa Theatre - or other
to provide best value to the community. to implementing the long-term plan for the City
see in the City Center. large surface parking lots in the City Center area
Center.
including the underutilized surface parking lot in
front of Millcreek City Hall.

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06 PHASING & IMPLEMENTATION MILLCREEK CITY CENTER MASTER PLAN

C. PHASE 1: 0-2 YEARS

IMPLEMENTATION PLAN area behind the historic Villa theater. The City can
create other temporary gathering spaces through
PHASE 1
Development is already underway in Millcreek’s tactical urbanism, or low-cost, semi-permanent 0-2 YEARS
future City Center including two mixed use changes to the built environment intended to
projects which should be completed in the next foster community through improved urban
two years. These projects have the opportunity of design. Establishment of high quality streetscape
encouraging the rest of the Neighborhood District environments - such as the work beginning along
to further develop and to set the standard for Gunn Avenue (future Villa Ave) - signal changes
the quality of development that is desired. Other occurring in the City Center.
projects that should be created during this time
should be low cost, high impact with the exception MILL PARK OPEN SPACE
of Mill Park. This project will have a substantial
cost, however its benefits are crucial to realizing One limitation to development is the presence of
the vision for the City Center Plan. a fault line running through the City Center area.
Using this geophysical feature as an asset, the City
FORM BASED CODE APPROACH will establish this corridor as an opportunity for
public spaces, parks, plazas, and open areas. This
Millcreek General Plan Goal
A Form Based Code approach can help the City unique feature will take several years to develop, Implementation

realize various urban design principles laid out in but the City should use an incremental approach.
this plan will be an important step in establishing It should develop a land acquisition strategy, VIBRANT GATHERING
PLACES

the consistency and quality anticipated in the offer incentives, and begin conversations as soon »» temporary spaces/events

City Center. This approach helps manage growth as possible to create this unifying element. The »» infrastructure that promotes
social activities

and achieve development within a desired urban construction cost to realize the vision for Mill Park »» interesting design and

(excluding land acquisition and project soft costs)

architecture of public realm
form. It differs from conventional zoning which
simply regulates density, building envelope, and identified in this document has been estimated at
land use. A Form Based Code approach addresses $3.61 million in early 2019 dollars.
the relationship between public and private
spaces such as streets, blocks, and buildings and HIGHLAND DRIVE/ UNIQUE NEIGHBORHOODS
»» reflects local culture and

uses specific design standards. It emphasizes MOUNTAIR STREETSCAPE history

»» landmarks and other unique

placemaking in urban environments and has been features

found to create more inviting public spaces. Other The City has identified a short stretch of Highland »» inclusive and diverse

benefits include promoting affordable housing. Drive adjacent to the Mountair neighborhood as
a prime location for improved public/park space.
TEMPORARY GATHERING SPACE Millcreek will transform an underutilized parcel
into a community park space which maintains the
Establishing the City Center as the ‘heart’ of existing Lilac bushes along Highland Drive and GREAT CONNECTIONS

Millcreek can start immediately. One idea would develops the corridor as a critical asset to the City »» safe and accommodating
for all users

be to utilize an underutilized parking lots as Center. It will also serve to further reinforce this »» intuitive wayfinding

event spaces. The large parking lot in front of the gateway to Millcreek. A relatively simple project »» dense, diverse land uses

current Millcreeek City Hall could be used for flea - which may be funded by private developers
markets, artisan fairs, and even outdoor movie already working in the area - becomes a highly
Example of a Form Based Code approach diagram
screenings. Down the road, ‘movies return to the visible investment in the City Center to create
Villa’ could make after-hours use of the parking excitement in the community.

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06 PHASING & IMPLEMENTATION MILLCREEK CITY CENTER MASTER PLAN

D. PHASE 2: 3-5 YEARS

IMPLEMENTATION PLAN accommodate all users and focus on improving
pedestrian crossings. It will provide a well-
PHASE 2
Investments in years three to five should be more designed transition from neighboring areas. The 2-5 YEARS
significant, more costly, and have the potential existing green space on the east side should be
for even broader impact. These will include items improved and better integrated into the street
that will likely require a combination of public design, creating additional comfort for cyclists and
and private funding sources to be negotiated as pedestrians. Like the City Center features added
development continues within the City Center. on Richmond Street, those on Highland drive
Investments will span development of mixed should be functional and have an appealing form.
use buildings as well as street enhancements. Examples include landscaping, well-designed and
Conversations with agencies like WFRC, UTA, attractive pedestrian and bicycle infrastructure to
UDOT, and Salt Lake City will need to happen to entice greater use by area residents and visitors.
determine how to leverage investments from larger Buildings along Highland Drive should be required
region-wide planning goals. This period will see to have active ground floor uses (see page 3.29 for
development occur in the Millcreek Center and more on building design).
south of 3300 South. Much of the streetscape
improvements should happen during this period, NEW CIVIC CENTER
Millcreek General Plan Goal
especially landscape installations which will need Implementation
time to fill in and mature. As a new City, Millcreek may begin to create their
long-term civic center in the City Center area. This OUTDOOR LIFESTYLE

1300 E/RICHMOND STREET UPDATE

»» active transportation networks

plan recommends placement on a highly visible »» quality public spaces

corner or a prime location along the center of Mill »» active uses and gathering

As a critical north-south connector for Millcreek, Park. This area could be the location for a City
places

Richmond Street / 1300 East’s transformation into Hall, community recreation center, public library,
a boulevard will facilitate much-improved land and include public parking to serve business and
use and urban quality in the City Center area. This civic needs within Mill Park and other community
investment will signal to property owners the intent investments that would bring activity to the City
to create a high value and walkable neighborhood in Center area.
ENHANCED CULTURE
»» high quality public spaces

the City Center. While the new right-of-way will still »» community events and

have two travel lanes in each direction, bicycle lanes MIXED USE DEVELOPMENT
culture

»» iconic public art

will be added to connect with active transportation
networks in this area. Gateways, landscaping and With a low level of ‘day time’ users currently
other urban design elements should be present to found in the City Center area, more mixed-use
assist visitors in sensing arrival and welcome to the developments with housing, retail, and office
Millcreek City Center. Buildings should have active will bring people to the City Center at more
ground floor uses, especially on corners. times of the day and evening. These users would THRIVING ECONOMY

increase demand for retail and restaurants. Those »» mixed use and office space

HIGHLAND DRIVE UPDATE working in the area would have easy access to
»» opportunity for business
expansion in Millcreek

conveniences found in a City Center. Millcreek »» easy access to daily needs

As a defining route providing access to the Economic Development should create strategies
within City Center

City Center, a redesign and transformation of for enticing these types of developments within
Highland Drive to become a boulevard is an the City Center during years two through five.
essential investment. The boulevard should

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06 PHASING & IMPLEMENTATION MILLCREEK CITY CENTER MASTER PLAN

E. PHASE 3: 5-15 YEARS

IMPLEMENTATION PLAN TRANSIT INVESTMENT

PHASE 3
5-10+ YEARS
Phase Three of the implementation plan includes Transit is more successful in denser
development of final infill pieces of the City Center neighborhoods. As more people begin to live in,
that have not been targeted by other development. work at, and use the City Center, long-term plans
This phase involves adding more housing for higher investment transit should be made. The
with ground floor mixed uses, transportation City can focus on improving connections to the
infrastructure, and the potential to re-consider how Urban Transit Node (identified in the City’s General
additional forms of transit can provide increased Plan) to the west and Sugar House in Salt Lake
access to this area. These are considered long- City to the north. This will help to enhance livability
term items because they are the most expensive and accessibility of the neighborhood as it grows.
or require significant time and partnership for It can also help sustain the expected growth along
implementation and thus have been categorized the Wasatch Front by providing alternatives to
as higher cost and lower immediate impact, as well driving, which will make roads less congested,
as more difficult to achieve due to greater levels of lower vehicle miles traveled, and improve air
regional collaboration required. quality in the long run.
Millcreek General Plan Goal
Implementation
ADDITIONAL HOUSING OPTIONS ADDITIONAL MIXED AND DIVERSE
LAND USES GREAT CONNECTIONS

Utah is expected to continue to see a high demand »» improved connections to

regional transit

for a variety of housing options in the next few In addition to housing, office, and retail land uses, »» improved pedestrian crossings
to surrounding neighborhoods
decades. Therefore, the City should strive to add other types of real estate might be considered.
»» quality infrastructure for

housing to the City Center incrementally. This Hotels often are required to support Utah’s cyclists and pedestrians

allows residents to remain in Millcreek throughout tourism industry and Millcreek has the opportunity
all stages of life if a variety of housing options can to participate in this aspect of the economy,
be provided in the City Center. As preferences for particularly as residential and office uses in the
more urban and walkable neighborhoods grow, City Center increase. Museums and art galleries HEALTH & ENVIRONMENT

»» investments in walkability and

the Center can become a highly desirable place could support Millcreek’s existing cultural identity. active transportation

to live (and work and play) with a diversity of Other flex use buildings could be added to ensure »» high quality public parks and
spaces for outdoor activity
housing styles that have vertical mixed uses. This the City Center is adaptive and responsive to
»» better access to transit

means retail, office, or other active uses would be future City trends and needs. services for more households

on the ground floor, with housing above which can

accommodate people in various stages of their life,
as well as meet the needs of a variety of income
levels.
THRIVING ECONOMY

»» long term investment in

regional job center

»» improved availability of
housing for all households

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APPENDIX 07
07 APPENDIX MILLCREEK CITY CENTER MASTER PLAN

A. PUBLIC PARTICIPATION

Second Open House

The ideas in this plan stem from a series of This Appendix documents the various participation
public engagement events. These events brought events through photos, descriptions, and content
together community members and stakeholders generated (where available). This robust and
representing diverse backgrounds. Including innovative plan would not have been possible if
citizen voice and perspective was critical in not for the input and passion provided by Millcreek
creating a plan which reflects the values of City and its community.
Millcreek residents.

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07 APPENDIX MILLCREEK CITY CENTER MASTER PLAN

PROJECT KICKOFF MEETING

The City Center Plan process started with a

smaller gathering consisting of City staff and key
project stakeholders.

The purpose of this meeting was to think big

picture. The group brainstormed answers to
questions like “what could our City Center
include” and “what do a future City Hall and civic
center look like?” They identified broad goals such
as creating a thriving City Center that is walkable,
connected to transit, and has a clear identity.

Other ideas generated at this meeting were

creating a variety of activity nodes within the
City Center, addressing traffic and thoroughfare
on 3300 South and Highland Drive, enhancing
streetscapes and placemaking, featuring existing
iconic buildings such as the former Villa theatre.

The group discussed current developments

including the two projects on Gunn Avenue and
Miller Avenue and suggested other economic
development and revitalization possibilities.

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07 APPENDIX MILLCREEK CITY CENTER MASTER PLAN

HOLLADAY TOWN CENTER AND SUGAR

HOUSE WALKING TOURS

The design consultants, MHTN and VODA,

and Millcreek staff led two separate walking
tours. The first took place in Salt Lake City’s
Sugar House neighborhood. The second tour
took place in Holladay’s recently revitalized
downtown. On both tours, the facilitators led
residents through popular and lively parts of each
neighborhood demonstrating different urban
design and placemaking strategies at work. The
residents generally had positive and encouraging
comments about setbacks and building heights,
sidewalk designs and traffic buffers, and the
district’s use of lighting. Scale of buildings was
a specific topic of discussion, and how it is
experienced differently on foot rather than in a
vehicle, particularly when buildings feature a step
back above the first or second level. Other ideas
discussed were the balance of green space and
hardscape.

SUGAR HOUSE
WALKING TOUR

2 1 1 Monument Plaza
SUGAR HOUSE Thinking about the future of Millcreek,
2 New Construction
WALKING TOUR we want to ask you a few questions: 3

Overall, how does this place make you feel? What was your favorite part of the walking tour? 7 3 Adaptive Reuse

6 4 S-Line and New Construction

4 5 Fairmont Park Upgrade

6 Wilmington Gardens
What design elements or features do you like the most? What design elements or features do you dislike the most?
7 Pedestrian Streetscape
5

WALKING ROUTE

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07 APPENDIX MILLCREEK CITY CENTER MASTER PLAN

CONCEPT DESIGN OPEN HOUSE

The first public open house happened in October

of 2018. Turnout was good with 66 visitors who
signed in and left email addresses. The design
consultants and City representatives hosted the
event in their City Hall Annex. Many residents
who attended the walking tours joined the Open
House as well indicating continued interest and
engagement in the process.

The purpose of the event was to refine big picture

ideas from the kickoff meeting and the two
walking tours. The event created space to talk
about how the City Center Plan would integrate
with the newly adopted Millcreek General Plan.

Additional thought-provoking questions were

posed to the public:
• What types of businesses & activities are
needed in Millcreek’s City Center?
• What local town centers do you think work
well?
• What are Millcreek’s unique attributes?
• What features could be developed to make
the City Center uniquely Millcreek?

OPEN HOUSE TABLE LAYOUT WELCOME TO THE OPEN HOUSE

MILLCREEK
4
CITY CENTER
Wednesday, November 14

3 5
6:30 - 8:30 p.m.
With a collaborative effort
between MIllcreek City, MHTN
Architects and VODA Landscape
and Planning over the course

2 6 of two months, the open house

is the last concept review and
public comment phase prior to the

1
master plan document finalization
and adoption.

1. TOWN CENTER + PHASE I 4. ECONOMICS

2. TRANSPORTATION + STREETSCAPE 5. PHASE III

3. PHASE II 6. IDENTITY

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07 APPENDIX MILLCREEK CITY CENTER MASTER PLAN

PREFERRED CONCEPT OPEN HOUSE

The Preferred Concept Open House, held in

November of 2018, showcased three potential
concepts that could be central to the new City
Center. The gathering drew another significant
turnout of Millcreek residents and stakeholders.

Concept 1 was titled Faultline Park & Plazas. Early

ideas for this concept included a central corridor
of parks and plazas, maximizing “unbuildable”
land as useful public spaces, connecting the
heart of Millcreek to regional networks, and
emphasizing human scale/urban density near
open spaces.

Concept 2, titled Laneways, was all about creating

a better connection for pedestrians. Elements
of it focused on intimate spaces connecting the
City Center, building infrastructure for cyclists
and pedestrians to connect to regional trails, and
focusing urban densities along major roadways.

The final concept, Grand Boulevards, considered

how to focus urban densities along major
roadways. Calming traffic to pedestrian-friendly
speeds, rebuilding major roads as boulevard style
amenities, creating boulevards on Highland Drive
& Richmond Street as “places” were all considered
important.

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07 APPENDIX MILLCREEK CITY CENTER MASTER PLAN

FINAL OPEN HOUSE

The third and final open house, held in January

of 2019, had a large turnout of nearly 100 people
from the community. Held in conjunction with
Millcreek’s second birthday celebration as a City,
as well as introduction of residents to the new
City Hall facilities, the event was a resounding
success. Residents voiced strong appreciation
for involvement in the process and the final City
Center Plan outcome. Topics discussed during
this gathering included the process of small area
planning, the importance of City Centers, phasing
the redevelopment over ten years, consideration
of transportation impacts, economic impacts, and
refining the City Center identity.

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07 APPENDIX MILLCREEK CITY CENTER MASTER PLAN

VALUES ASSESSMENTS

Canyon Rim Community Council (February 1, 2017) East Millcreek Community Council (February 3, Millcreek Community Council (February 7, 2017) Mount Olympus Community Council
1. Time machine question 2017) 1. Time machine question 1. Time machine question
More Parks/park amenities/green (5) 1. Time machine question? Open space (3) Walkable commercial districts (3)
Better restaurants and shopping areas (2) 2. What feature of Millcreek makes you want to No taxes, less traffic, beauty, good paved Cleaner/less pollution (2)
Walkable/biking community stay forever? roads, a west side high school Connected and completed trails (2)
2. What feature of Millcreek makes you want to Location/access (4) 2. What feature of Millcreek makes you want to Better schools (2)
stay forever? Community/neighborhoods/open spaces stay forever? Parks/open spaces/recreation centers,
Neighborhoods with small homes (3) (3) Open space/Cottonwood Park (3) same level of services, more citizen
Area amenities (the Canyon, parks) (3) Quiet/friendly (2) Neighborhoods/people (3) involvement
Connectivity/location (2) 3. What makes Millcreek different from other cities? Views of the mountains, walkable streets/ 2. What feature of Millcreek makes you want to
2300 E/3300 S area Safe neighborhoods (4) trees, graffiti (?) stay forever?
3. What makes Millcreek different from other cities? Diversity/east side/west side/varied 3. What makes Millcreek different from other cities? Proximity to the mountains/views (7)
Parks (Tanner/dog access) (3) housing (3) Diversity (2) Neighbors/neighborhoods (2)
Smaller suburban shopping (2) Quiet, junk in yards Not overcrowded (2) Progressive government (2)
Location, View of Mt. Olympus 4. What do you wish there was more of? Caring people (2) Trails
History, neighborhoods Better sidewalks (3) Well established, weird shape, we aren’t 3. What makes Millcreek different from other cities?
4. What do you wish there was more of? Better restaurants/drinking establishments different Location/setting (4)
Commercial and entertainment (6) (3) 4. What do you wish there was more of? Diversity (2)
Young Families Trails/bike paths (3) Open space/parks (3) Neighborhoods, commercial residential mix,
Community events Good landlord program (2) Activities sponsored by community groups schools, no difference
Water/streams Lighting (2) (2) 4. What do you wish there was more of?
5. What do you wish there was less of? Better/cleaned up buildings, public transit, Commercial businesses (2) Commercial centers/restaurants (3)
Traffic/noise/congestion/confusing transitions between commercial and Safer drivers, affordable housing, houses Public transit (2)
accesses (2) residential with yards Community planning, picnicking/parking in
Storage units (2) 5. What do you wish there was less of? 5. What do you wish there was less of? Canyon, known CERT plans, more
Power poles (2) Traffic (4) Density (3) resources, more diversity, safe
Check cashing, thrift stores, billboards, Storage units (4) Tall buildings (2) neighborhoods, street lighting, clean air
crime, pollution, concrete, street Telephone poles on 33rd (3) Commercial (2) 5. What do you wish there was less of?
appearance Unkempt yards, billboards, speed bumps, Storage units, crime, homeless Pollution/noise (5)
6. What are the biggest issues facing the City? commercial development, big box stores 6. What are the biggest issues facing the City? Traffic (3)
Economic development/retail 6. What are the biggest issues facing the City? Plan/development (5) Messy yards along streets, high density
opportunities/appearance (4) Sales tax generation (2) Being a new City replacing commercial uses, crime,
The appearance of 33rd (2) Traffic/33rd (2) Need more business and retail, crime inappropriate businesses, ugly neon signs
City boundaries and revenues Long term planning (2) 6. What are the biggest issues facing the City?
Crime, traffic noise Diversity (2) Creating a new government (4)
Housing affordability, run-down areas, road Sustainable tax base (2)
repairs, air, serving the citizens, Growth (2)
communication, sidewalks Pollution (2)
Safety, apathy

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