Beginning in 2002, following the purchase of Denver Union Station by RTD, Denver, CDOT, and DRCOG, the four partner agencies initiated the Denver Union Station Master Plan process to create a vision that would guide the Environmental Impact Statement, zoning of the property, Landmark designation, and other future implementation actions. The Master Plan was adopted by all four entities in September 2004. The 2004 Master Plan presents a vision, a framework, and practical guidelines to transform the historic station into a multimodal transportation center serving the Denver region and the entire state of Colorado. The multimodal concept brings together many different means of transportation in one place with logical, safe, and convenient transfers. It also anticipated that transportation and development of the site would be mutually advantageous and proceed concurrently.

The 2004 Master Plan detailed the benefits and complexities of combining all the region’s transportation modes at one hub. It created the opportunity for Denver Union Station to enhance the value of local, regional, state, and federal investments in highways, HOV lanes, light rail, commuter rail, local and regional buses, parking, bike paths, and pedestrian networks. The Master Plan expanded this concept to include international connections through DIA and private bus connections. And it restores the station as a gateway to Colorado, the metropolitan region, and Downtown Denver.

Denver is the primary intersection of transportation modes and corridors serving the region and the state. Statewide and regional rail networks, interstate highways, state roads, light rail, and bike paths all converge in or near Downtown Denver. The city and its transportation infrastructure create the gateway to the region, the state, and the Rocky Mountain West.

In the 1980s, as the Denver region studied regional light rail and commuter rail, planners identified the need for a central point of connection. The best location for this hub soon came into focus: Denver Union Station. Located in the state’s geographic heart and capital city, as well as its busiest downtown, Denver Union Station enjoys:

• existing rail lines that allow easy access for new lines,
• convenient highway connections,
• a wonderful historic station building prime for more active use,
• adjacent sites for complementary development that supports transportation,
• a central location near the region’s biggest event and entertainment venues and densest employment center,
• location within a highly walkable downtown, and
• proximity to a rich bicycle network including the South Platte River and Cherry Creek greenway and bike path systems.

Through extensive study, planning, design, and public feedback gathered during the Master Plan process, the Denver Union Station site was confirmed as the best location for a multimodal facility that takes advantage of its geography and transportation infrastructure.

While much of the 2004 plan remains relevant, there have been some significant changes that warrant further consideration through this Master Plan Update.

FasTracks
In November 2004, the voters of the region approved a tax increase to fund the FasTracks regional transportation plan, which includes Denver Union Station. This infusion of funds set the stage for moving beyond the Plan to design and construction. It also secures DUS as the hub of the regional transportation system.

Downtown Multimodal Access Plan (DMAP)
The City and County of Denver and its partners, RTD and CDOT, initiated the DMAP process in 2003 to identify improvements needed to the Downtown transportation system in anticipation of FasTracks. The Plan, adopted in December 2005 by the Denver City Council, identified the need for a Downtown Circulator on 18th and 19th to supplement the 16th Street Mall Shuttle and the movement of people between Denver Union Station, employment concentrations in mid-downtown and Civic Center. The Downtown Circulator is funded within FasTracks, and DMAP recommended that it be operating when the West Line opens. The Circulator is described as a rubber tire vehicle operating in both exclusive lanes and mixed traffic on 18th and 19th and Broadway and Lincoln. While a shuttle type vehicle was recommended, DMAP was clear that it did not preclude consideration of other modes such as streetcar.

Downtown Area Plan
In 2006, the Downtown Denver Partnership and City and County of Denver initiated a new Downtown Area Plan process to replace the highly successful 1986 Downtown Area Plan. The Downtown Area Plan was adopted in July 2007. Plan recommendations include refurbishing the 16th Street Mall,; focusing more attention on the named streets as important connectors across Downtown, capitalizing on the Downtown Circulator as an important public investment in the heart of downtown, and adding more jobs, residents, retail and visitors to Downtown. Specifically, the plan recognizes the importance of Union Station as the regional transit hub and advocates for developing Union Station in a manner consist with the vision, goals and principles of the Master Plan.

Master Developer Selection
Early on, the partners recognized the advantage of having a private developer partner on board as important design decisions were made. In November 2006 after an extensive solicitation process, Continuum/East-West Development Partners were selected as the Master Developer to begin exclusive negotiations with the agency partners. The EOC made the selection because the submittal provided a means to accomplish the transportation and development goals of the 2004 Master Plan in a single phase using the concept of a Transit District, which enables development to begin concurrently resulting in a viable transportation and development asset much earlier than expected with the 2004 Vision Plan.

FasTracks Corridor Environmental Studies
All of the FasTracks Corridors are in various stages of completing the environmental documentation required for federal funding. As expected, some of the corridors have varied routes and/or modes from what was included in the FasTracks Plan. The most significant of these changes for Denver Union Station is establishing the Gold Line technology as commuter rail.

Timing of improvements
The USNC District Plan proposes that all of the transportation components be constructed beginning in 2009 and be complete when the West Line opens in early 2012. This also enables private development to commence on much of the site at the same time.

The Master Plan Vision and Goals statements were created to serve as a guide for the future redevelopment of Denver Union Station. These statements were prepared jointly by the Executive Oversight Committee, the Union Station Advisory Committee and the Technical Advisory Committee. It is the intent of the Plan Update to retain the vision and goal statements established in the 2004 Master Plan.

“Denver Union Station will be a multimodal transportation hub of international significance and a prominent and distinctive gateway to downtown Denver and the region.

Denver Union Station will bring critical elements of the public and private local, regional, statewide, and national transportation systems, both existing and future, together with private development and inspiring civic features.

Denver Union Station will create an exciting setting that will improve the connections between all transportation modes, respect the character and historical significance of the station and its adjacent neighborhoods, and provide a stimulating environment for public activity and economic vitality.”

Vision statement developed by the Union Station Advisory Committee and the Agency Partners, Summer 2002.

1. Transportation/Multimodal Center

• Develop a public transportation facility that will:
  • Serve as the hub of the regional transportation system.
  • Ensure that all modes function together to optimize the efficiency of each mode for system wide efficiency.
  • Provide connections for all transportation modes into and throughout the Denver region.
  • Increase transit ridership and use of other forms of public and private transportation and alternative transportation modes.
  • Provide increased ground transportation options to the traveling public.
  • Accommodate all ground passenger modes, both public and private, to the greatest extent feasible on the site.
  • Create a system of mode transfer and way-finding orientation that allows for simple and efficient movements and connections for travelers.
• Support major activity centers and destinations in the region by providing easy access and seamless connections.
• Provide transportation options and uses at Denver Union Station that are consistent with the Metro Vision Regional Plan.
• Provide the opportunity for connections to and between local, regional, statewide, and national transportation systems and networks.

2. Urban Design and Neighborhood Integration

• Develop a plan that will provide pedestrian-friendly urban design elements that:
  • Ensure that the mass, scale, orientation, and architecture of the redeveloped Denver Union Station site and its private development are harmonious with the historic station and the surrounding neighborhoods.
  • Encourage a mix of land uses on the site that creates appropriate densities of development that are compatible with neighborhood plans and concepts.
  • Connect downtown, the Central Platte Valley, and the adjacent neighborhoods, emphasizing pedestrian and bicycle connections to and through the development, easy access to transportation, and an active, attractive environment.
• Create a positive user experience for the Denver Union Station multimodal transportation center and related on-site development.
• Provide for the creation of public spaces

3. Historic Preservation

• Provide for the preservation of the historic Denver Union Station building.
• Fit the form and architecture of the project’s new development with respect to the historic character of Denver Union Station and the surrounding neighborhoods.
• To the greatest extent feasible, fully incorporate the historic train station into the multimodal transportation hub both physically and functionally.

4. Development Feasibility

• Develop a plan for the facility that maximizes the opportunity for public/private development that supports transportation ridership, serves neighborhood needs, functions as a regional and statewide amenity, generates project revenues to help offset costs, and enhances downtown’s environment.
• Develop a financing package that optimizes the use of funding from federal, state, local and private sources.
• Integrate transportation and development in an economically sustainable phasing and build-out strategy that takes advantage of available funding and public/private partnerships.

5. Implementation and Governance

• Develop a plan that provides governance of the Denver Union Station site that is appropriate for a public/private facility, that does not put undue risk and burden on the taxpayers, and that provides opportunities for private partners and users.
• Ensure that the long-term ownership and governance structure for the Denver Union Station site incorporates strict and demanding standards of quality and cost-effectiveness for facility design and quality of workmanship, as well as for on-going operations and maintenance.

6. Sustainability

• Meet the needs of the present without compromising the ability of future generations to meet their own needs
• Utilize approaches that have net positive effects on the local environment, social well-being, and economic health.

The District Plan for Denver Union Station (DUS) is the result of the 2004 Master Plan, the master developer selection process, and extensive community involvement. The District Plan accommodates three major transportation modes - light rail, passenger rail, and regional bus, other public and private transportation providers, as well as convenient pedestrian circulation within and through the site. Perhaps most importantly, all of the transportation elements can be constructed at the same time allowing for viable private development and public access without the disruption of major underground construction activity in the future.

The Master Plan Update will be completed during 2008.