City Of Milton, Department of Planning and Zoning
Blackwater Riverfront Master Plan
Making the River Accessible
Conceptual Design Package
2012
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Table of Contents
Executive Summary................................................................... 3
Conceptual Plan ...................................................................... 12
Project Background ............................................................... 3
The Vision ............................................................................ 12
Goal .................................................................................... 3
Program ............................................................................... 13
Objective ............................................................................ 4
Riverwalk Park Design Program ....................................... 14
Introduction........................................................................... 5
Design Parameters .............................................................. 15
Regional Context................................................................ 5
Master Plan ......................................................................... 18
Project Area ....................................................................... 5
Section 1: Commerce....................................................... 21
Assets ................................................................................. 7
Section 2: Nature ............................................................. 23
Potential Amenities ........................................................... 8
Section 3: Recreation ....................................................... 25
Destination ........................................................................ 9
Section 4: Family .............................................................. 26
Marina Circle Design .......................................................... 9
Implementation Strategy ........................................................ 29
Master Development Plan ...................................................... 10
Park and Marina Design Metrics .............................................
Site Analysis and Synthesis.................................................. 10
Urban Design Frameworks .................................................. 11
Phasing and Permitting Approach......... Error! Bookmark not
defined.
Recommended Framework Plan ........... Error! Bookmark not
defined.
Remaining Hurdles and Next Step ........ Error! Bookmark not
defined.
Master Developer’s Current Plan .......... Error! Bookmark not
defined.
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Executive Summary
Project Background
Goal
The Planning Department of the City of
Milton conceived The Blackwater
Riverfront Master Plan and Conceptual
Design in an effort to give focus to a
vision for the riverfront. The overarching charge of the effort is to
develop the riverfront into a “worldclass amenity” making use of
ecologically sustainable design
standards, drawing both residents and
visitors alike to a significantly improved
mixed-use, urban waterfront befitting
the City of Milton. This concept is
prepared in the hope that significant
funding becomes available when the
project becomes “shovel-ready”. If
implementation is to occur without
significant financial assistance, the City
will identify those aspects that are
most important and push for the
development of those.
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Objective
Key objectives of the Riverfront Master Plan are to produce a higher
quality public realm and to assist in invigorating the downtown
economy. Pathways, monuments, pavilions, streams, gardens,
landscaping and other such improvements have been installed along the
riverfront area in a somewhat happenstance manner over the decades.
In the context of this plan, improvements to the public realm are an
effort to better arrange and connect the existing amenities with new
amenities which will encourage more regular use of the park by more
people. Numerous examples in other cities have shown that drawing a
crowd can have positive economic effects on nearby merchants who
offer goods and services desired by folks enjoying the public amenities.
The Riverwalk Master Plan will provide a diversity of activities and
attractions along Blackwater River within the City of Milton, linking
them together with pedestrian promenades, bicycle paths, landscaping,
sculpture, and conveniences including parking, shade, and
concessionaires. A detailed description of the elements of the Riverfront
Master Plan is contained in Conceptual Plan Chapter of this report.
Building on the recent positive downtown and community redevelopment ordinances that have been adopted and the continued
success of the Riverwalk Arts Festival and Russell Harber Park, this Master Plan would guide public and private initiatives to further
improve both the image and vitality of the downtown and riverfront areas of Milton. The vision of the Master Plan would be unique
and reflective of the culture and future of the City of Milton within Santa Rosa County. Above all, it would embrace the Blackwater
River. The vision would inspire pride in the citizens of Milton as well as encourage long term private sector investment and
economic development, further reinforcing the rediscovery of downtown as both a destination and residential center. The plan
identifies and gives visible focus to physical public infrastructure investments which in turn help define the public landscape into
which private investment will be developed.
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Introduction
Regional Context
The City of Milton is the county seat for the county of Santa Rosa and, as such, a majority of all governmental and public services are
carried out within the city. The city also contains a downtown area in close proximity to the Blackwater River, which gives both
residents and visitors beautiful views of the river front as they drive through the area. Despite the beautiful views pedestrians are
unable to make full use of the river due to limited public access to the waterfront and a lack of walkways. In this context, the Milton
Riverfront area is in real need for an updated vision of the downtown riverfront.
Project Area
The project area comprises 3.916 acres, stretching .59 miles along the west bank of the Blackwater River facing east; with a primary
focus on the area immediately adjacent to the existing riverwalk components. From the Veteran’s War Memorial in the south, to
Carpenter’s Park in the north, the study area extends west to Broad and Willing Street, and is bordered by the river to the east.
Analysis and concept evolution took into consideration preceding and continuing parallel planning efforts and proposals in
overlapping areas with downtown, including proposed improvements described in the following documents or areas:
New Milltown Overlay District (95.65 acres)
Community Redevelopment Plan (311.47 acres)
Russell Harber Park (15.89 acres)
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Assets
This concept plan focuses on improving connectivity between
existing and anticipated riverfront assets, particularly those
clustered around and between the Riverwalk Pavilion, the
Veteran’s War Memorial, and the anticipated Marina Circle.
While the existing bridge across Blackwater River connects to
Russell Harber Park and Riverwalk Pavilion area, there is a
prevailing attitude that these institutions are separate entities
and they are generally viewed independent from each other
as they are largely segregated by a dangerous roadway. The
plan hopes to use Blackwater River to provide connection
between city assets such as the Riverwalk Pavilion and
Veteran’s War Memorial in the south, Carpenters Park in the
North, and Russell Harber Park along the east bank of the
river.
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Potential Amenities
The Planning and Zoning Department of the City of
Milton anticipated that a number of potential private
sector development opportunities would include
additional restaurants, residential units, and commercial
ventures. The planning effort would look for other
potential opportunities to locate singular riverfront or
downtown amenities, including a marina providing boat
ramp access and mooring slips, a continuous shoreline
walkway, and an area for festivals and other community
events. The plan is also designed to accommodate the
building of a covered market, a children’s splash pad, and
a dog park. The concept would address standard
pedestrian and landscape components, particularly
water features, as well as a broader analysis of the
riverfront landscape ecology. The design hopes to
encourage residential recreation, local commerce, and
awareness of the riverfront’s natural character. The
removal of some existing riverfront amenities, or their
reconfiguration, was anticipated for the building located
on the Marina Circle parcel, and some of the mooring slips on Quinn Bayou.
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Destination
The riverfront is viewed as an appropriate destination for major
civic events, and has the potential to be utilized by various
institutions, such as the Santa Rosa Arts and Culture Foundation,
as an extension of their respective venue for expanded public
gatherings. In such instances, accommodations for increased
pedestrian access along the riverfront, event infrastructure, and
restroom facilities are needed. The area could also be utilized for
such community events as a Farmer’s Market or be used by
civilians to host small private gatherings.
Marina Circle Design
The Marina Circle hopes to provide all the basic needs a boating enthusiast may need while enjoying Blackwater River. The design is
planned to include a boat loading and unloading zone in addition to the basic boat ramp already in existence. The Circle will also
provide access to an Aboveground Storage Tank of petroleum as well as a pump-and-dump station. Outside of the Circle there will
be parking available for both vehicles with marine trailers and those without. As part of the larger recreational section of the
Riverwalk, the Marina Circle will have access to public restrooms with outdoors showers, small retail facilities, and a local café.
Access to all of these amenities will be provided by public walkways identical to the overall walkway of the Riverwalk.
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Master Development Plan
Site Analysis and Synthesis
As the result of several site visits, discussions with City staff, contact with local utility providers, and discussion with local residents,
the City of Milton determined that the following existing site features should guide the design of the Riverwalk.
The highlights of the analysis include the following:
 Several stands of mature oaks and other hardwood groves exist on-site; major groupings and specimen trees should
be retained to the greatest extent possible
 Sections of the riverfront shoreline contain protected species of vegetation, wetlands, and native habitat; avoiding
impacts to these areas will expedite the environmental permitting process
 The site has three full-access intersections along Broad Street that should be utilized for vehicular and pedestrian
access
Building upon the collective analysis of site opportunities and constraints and the preliminary development program, the City of
Milton has determined the guiding objectives shown on the adjacent map.
The following are some highlights of the site synthesis:
 Preserve any Oak Tree Groves as a semi-shaded open space
 Enhance the waterfront experience by restoring the shoreline with native vegetation - creating a soft edge
 Position development so front doors are continuously facing Blackwater River
 Provide as many street connections between the waterfront and Broad Street utilizing existing rights-of-way for
utilities and street corridors
 Focus commercial development along major street frontages and entry corridors such as Willing, Berryhill and Broad
Streets
 Maximize the waterfront visibility of the promontory for commercial marine uses
 Maintain Florida Community Trust parcels as public park components
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Urban Design Frameworks
The success of Riverwalk is intrinsically associated with the success of the overall Riverwalk development project. However,
fundamental urban design principles, or frameworks, are critical to ensuring that the public realm and the private development
operate symbiotically; that is, several basic principles regarding physical layout and juxtaposition are paramount decisions that
should guide the development of the overall master plan.
This dynamic relationship between the private and public realm is a key consideration for the City and the Master Developer. During
initial studies, the City of Milton Planning and Zoning Department agreed on four urban design frameworks for Riverwalk:
1. Connect Milton to the River
2. Clarify the Public Realm and Private Development Zones
3. Activate the waterfront with various zones of River and Park experiences
4. Start at the Water
The urban design frameworks provide a series of overall goals for the Riverwalk as the City moves forward from concepts to
construction. The principles are generalized diagrams for flexibility, but the essence of the ideas inherent in each purpose statement
should be upheld. Though modification to the Master Development Plan is likely, the urban design frameworks provide the City with
a constant vision for the basic form of the project.
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Conceptual Plan
The Vision
During the first stages of the park design process, the City staff created the community’s overall vision for the park. This vision
embodied the ideas and aspirations of public officials and citizens. Various members of the City of Milton’s Planning and Zoning staff
worked together to further develop the park vision into a more tangible visual product. The group of City staff included planners,
landscape architects, engineers, code enforcement officers, public administrators, and operation/maintenance staff. Through the
collective ideas and open discussion amongst this group, a series of broad goals were identified for the Riverwalk experience with an
overarching objective to:
“Create a world-class park that is an innovative, Green Showcase where
visitors can experience and learn something new each time they visit”
Equally important to the functional goals of the park is the design character. The character of the park should be adapted to and
derived from the context in which it is located. Significant inspiration for the design of the Riverwalk comes from the nature of the
site and the “essence of Milton.” Discovering the essence of Milton became clear when the design team realized that the natural
beauty and environmental quality of the river define one’s experience of the City. The environmental features of Milton - the
Flora, Fauna, and the River - are the hallmarks which have led to the organization of park spaces and the functional experiences
within. In addition to design character, The Planning and Zoning Department drew inspiration from the culture and history of Milton
for certain designs elements. Historic symbols, gateways, and cultural icons will be evident evocations of the essence of Milton to
Riverwalk visitors. The Planning and Zoning Department was very focused on identifying Milton’s and the residents’ cultural
tendency to recreate along the City’s beautiful tree-lined walkways.
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Program
From the discussions on overall goals and more specific ideas of park character, the Planning and Zoning Department developed a
park program for the Riverwalk. The group identified five categories to be included in the space planning and conceptual design of
the park:
1. Park character and identity
2. Marine-related amenities
3. Materials
4. Potential events
5. Other important park features
There is a significant interest in showcasing the Riverwalk as an exemplary project of “Green Technology” by applying low-impact
stormwater techniques, alternative energy sources, and sustainable materials to the design of the Park. To this end, the Planning
and Zoning Department has incorporated these design ideals into the programming and organization of the Park. The following
program list is the foundational body of components desired by the community. As the project moves into schematic design and
design development, the Program will be honed and augmented to satisfy and accommodate all interested parties. More detailed
elements of design will be addressed during the future stages of the project development process.
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Riverwalk Park Design Program
A. Park character and identity
Power the park with alternative energy sources:
Solar, Wind, etc
Education on local ecology
Enhance environmental features
Sustainable stormwater techniques
B. Marine-related amenities
Motorized boating area
Fueling
Bait/ice/tackle
Rentals: canoes, kayaks
Fishing
Restricted non-motorized boating area
Remote-control boats
Boardwalks/piers over water
Experience the water up close
C. Materials
Low maintenance, sustainable “green” materials
Consistent with Florida landscape
Coquina
Field stone, cap rock
Tabby
Stamped concrete: wood planks, shells
Synthetic decking
Architectural style consistent with local regulations
D. Potential events to be held at the Riverwalk
Fourth of July
Fireworks
Bands
Vendors
Art show
Bike-a-thon start/finish line
Regatta
Boat parade
Farmer’s market
Shakespeare in the Park
Movies in the Park
Festivals (Seafood, Latino)
Christmas parade start/finish
Open space accommodating 1200 people
E. Other important park features
Rental pavilions
Swings
Game tables
Market areas
Wi-Fi Hot Spot
Public Concessionary/Eatery
Splash Pad/Fountain
Cultural Iconic Elements
Dog park/beach
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Design Parameters
From the program list of specific functional considerations and design elements, the Planning and Zoning Department developed a
breakdown of the desired program into a set of physical organizational diagrams. These diagrams describe how the broad ideas and
the general location of specific design elements are applied to the site.
Assuming that the Master Development Plan will be modified slightly in the future, the Design Parameters are the minimum design
controls that should be applied to the Park regardless of the final form of the Master Development Plan. Comparatively, the Design
Parameters are the “Code minimum” by which the Park should be designed. The widths and general size of each program area
should be held consistent when considering modifications to the Master Plan, and the programming type should be considered
when new development uses are proposed.
The Conceptual Park Master Plan was organized as follows and should be evaluated according to the Design Parameter graphics:
Character Zones
Park Experience
Program Areas
Water Use Areas
Site Grading Concept
Stormwater Concept
The Park Parameters are the backbone of the Park Master Plan and are the foundational principles upon which the final details of
the Park must rest. That is, these Parameters are the basic “must-haves” for the Park - the imagery, materiality, and aesthetics
should support these fundamental ideas.
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Character Zones
The Park shall have both Natural and Civic qualities with civic areas located between the Veteran’s War Memorial and Marina Circle.
Natural/passive recreation areas should be located to the northern and southern extents of Marina Circle as a transition to
the context.
A civic zone should be focused in the mid-section of the project, generally associated with the planned public marina location
and the market area.
Character zones will influence the design of material finishes and the rigid (civic) or organic (natural) design aesthetic.
Park Experience
The Park shall be experienced in multiple levels.
River Edge: A continuous waterside path with preserved or restored vegetative shoreline shall extend north from Carpenter’s
Park and south to the existing Riverwalk.
Public Park: The Park shall be a continuous swath along the waterfront with a minimal width of 30’ between Mean High
Water Line and any street or building; the park should be situated at an elevation overlooking the water at a minimum +5.5 ft
above sea level.
Urban Streets: Where applicable, streets shall provide direct access to the Park, include public parking; apply low-impact
stormwater technology, narrow drive lanes, and broad sidewalks according to the proposed street design standards.
Program Areas
The Park shall include four major nodes connected by a dynamic linear park.
Each node shall be located around the end of cross streets such as Monroe, Madison, and Quinn Street and contain the
design elements according to the Program Areas diagram and the corresponding section of the Riverwalk.
Some type of major park structure (buildings or shelters) shall be located within each section.
Private development shall not reduce the overall size of any park program area as established on the Program Areas diagram.
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Water Use Areas
The River areas adjacent to the Riverwalk shall be designed in an effort to connect all aspects of the area.
The most active, public commercial boating area shall be centered by Marina Circle.
A non-motorized area should reflect the natural/passive area south of Marina Circle.
Site Grading Concept
The site should be graded to protect all private development from a 100 year storm, but certain areas of the public park should be
susceptible to periodic flooding for didactic and pragmatic purposes.
All primary park structures shall be constructed above the minimum flood elevation (5.5’ NGVD), while secondary structures
and pathways near the River may be inundated during major storm events such as hurricanes.
All areas subject to periodic flooding shall be designed to withstand such through proper material selection and durability.
Stormwater Concept
The Park should utilize low impact stormwater techniques and sustainable solutions to the greatest extent possible.
Stormwater should be emphasized through creative design and conveyance techniques as an educational opportunity for
visitors.
Rain Gardens or Bio-Swales should be incorporated into street “bulbouts” between on-street parking spaces, where
applicable, and in areas of the park where drainage will be needed. These should be designed as beautiful amenities which
also educate.
Stormwater Exfiltration (subterranean percolation pipes) should be utilized beneath open areas such as streets and large
lawns within the park to reduce waste of land for open ponds, when necessary.
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Master Plan
The Riverwalk Park Master Plan shown herein is a graphic representation of the basic components and concepts articulated by the
Park Design Parameters and The Program. The Park Master Plan contains the ideas and elements developed during design
workshops and interviews with the collective City staff and Master Development Team constituents. The design features throughout
each section of the master plan should all coincide with each other in an effort to present a unified Riverwalk experience. Following
is a “walk-through” of the Plan from north to south starting at the Riverside Pavilion site and concluding at the southern terminus of
the Park.
In an effort to accommodate all the needs to the citizens that may be utilizing this Riverwalk, the Planning and Zoning Department
has chosen to separate the Riverwalk into four different sections. Each section provides one type of community asset more than the
other areas, but no section is completely exclusive of some type of each community function. The sections are each shown on
separate drawings in the following depictions of the Master Plan.
*The pictures in the following pages are drafts and do not necessarily represent the information discussed in each section, but are
close approximations. Professional pictures would drawn at the time of plan implementation.
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Section 1: Commerce
The first section will contain the majority of the commercial needs of the community. It will feature a covered market area where
vendors can sell goods and citizens will be able to find a wide array of products. The market will be allowed to accommodate the sale
of such items as baked goods, fruits and vegetables, art, and small scale retail. The remaining space within this section will be
devoted to a small kayak rental building, an interactive splash pad, a public dock, up to six picnic pavilions, and a parking facility. The
public dock will be available to all water craft for temporary daytime moorings, which will allow citizens to enjoy the commercial
services found on land while boating.
As the drawing depicts, access to the market and splash pad will be from the parking lot parallel to Monroe Street. So as to ease
traffic congestion on Willing, Berryhill, and Broad Street; Monroe Street will act as the central driving entrance to the Riverwalk. This
street also has the availability to feature a welcome sign upon park entrance.
The covered market space is designed to be in the shape of a wide “L” with the open end facing the river. This will allow patrons to
be able to view the river while they shop. In an effort to uphold the sustainable ideas of the park, the roof should be lined with solar
panels. Underneath the market roof there should be a line of misters and fans which will provide even more relief from the hot
summer days experienced by Milton. The center of the market is designed so that a large water fountain can be featured for the
view of all. Local artists should commission this fountain so that the fountain will act as a central meeting place and will instill a
sense of pride within the City’s citizens.
The remaining feature depicted in the drawings of this section is an interactive splash zone for children. The water in this section and
the fountain should be engineered to make use of the nearby river’s water and power. This will help ensure that the Riverwalk
adheres to its goal of groundbreaking green efforts.
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Section 2: Nature
The Nature section should be focused on preserving the natural habitat as much as possible. Throughout this area of the Riverwalk
educational signs should be located so as to inform visitors about the local flora and fauna and the ecologically sustainable measures
taken throughout the park.
The southern edge of this section is bordered by a stream and, as depicted, a lookout seating area should allow visitors to sit and
gaze at the river and stream. Benches and solar-powered shade structures should be placed on the look-out deck in order to
accomplish the guidelines. On the other side of the stream, partly in the Commerce section, an interactive eco-rain garden should be
featured so that the river and stream can overflow during heavy rain events. Sculptures depicting local fauna should be placed in this
area as an artistic element of the garden. Sculpturally aesthetic wind turbines should also be placed in this rain garden to generate
renewable energy for the park.
The walkway of the Riverwalk should be made of recycled timber or concrete and be at least eight feet wide. Wider restrictions
could be accommodated for, but narrower widths should not be allowed because there should always be plenty of room for
pedestrians with or without dogs and bicyclists. The following drawings depict some of the design elements that should be
incorporated into the plan of this section.
The area that marks the northern end of the Nature section and the southern end of the Recreation section should be occupied by a
dog park/beach area. The dog park is planned to be in an area where the natural topography already exhibits some sandy shoreline
but the length of the sand should be extended to provide a larger area for dogs to run. The park should also include a shaded deck
area for owners.
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Section 3: Recreation
This section will be characterized mainly by Marina Circle and the ability for private sector development. The Marina Circle will
provide patrons with the ability to load and unload boats and park vehicles with trailers. It will also provide boaters with access to an
above ground storage tank containing marine petroleum and a pump-and-dump station.
The area surrounding Marina Circle will have space for a private mixed-use retail development and a mixed-use restaurant
development. This area may also be used for the rowing facilities the city has discussed providing to local area users. The drawing
and pictures following depict come of the design standards that should be considered in the planning of this area.
The drawings indicate where and how all the elements of the Recreational section should interact including the public restrooms,
restaurant, decks, parks, and walkways. As with all other sections of the Riverwalk copious steps should be taken to ensure that the
area is design with as many ecologically sustainable features as possible. The drawings depict areas where wind turbines and solar
panels should be used as well as living rooftops.
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Section 4: Family
This section of the Riverwalk, while longer than some of the others areas will be devoted to connecting the Riverwalk with
Carpenter’s Park. This park contains a boat ramp, playground, and pavilions that are often used by patrons to host family gatherings
and events. In an effort to cater to all types of family and personal dynamics, the Riverwalk should be connected to the City’s park.
Along this section of the Riverwalk another seating deck should be placed so that patrons can rest and enjoy the view of the river
and park while walking.
The following drawings show some design standards that should be considered in the development of this section of the Riverwalk.
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Implementation Strategy
Cost Estimates
Amenity
Quantity
Interpretive Trails
Overlook & Boardwalks
Picnic Shelters
Fishing Docks
Kayak Launches and Rentals
Boardwalk
Waterfront Promenade
Stormwater System
Day Docks
Charter House with Restrooms
Parking
Picnic Lawn/ Landscape/ Paving
Dog Park
Alternative Energy Components
Children’s Splash Pad
Farmer’s Market
Permitting
Rowing Boathouse
Marina
Restaurant/ Retail
Fountain
3,000 linear feet
4,200 sq. foot boardwalk
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4 @ 1,200 sq. foot
640 sq. foot bldg. , 1,400 sq. foot dock
1,500 linear ft 12 ft wide
2,000 linear ft; 12 ft wide
3,500 sq. ft
72 spaces
1 acre total
1.5 acre
5 wind turbines, 9,200 sq. ft solar panels
1
400 sq. ft
TOTALS
Cost
250,000
572,000
300,000
403,200
500,000
1,512,000
2,016,000
1,500,000
130,000
870,000
324,000
1,000,000
30,000
1,466,000
50,000
5,000
0
3,000,000
3,500,000
1,900,000
500,000
19,828,200
*All values are approximations based on other similar projects.
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