City of Minneapolis. Mississippi River Critical Area Plan Approved by City Planning Commission May 8, 2006

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1 City of Minneapolis Mississippi River Critical Area Plan 2006 Approved by City Planning Commission May 8, 2006 Approved by Zoning & Planning Committee June 8, 2006 Approved by City Council June 16, 2006

2 Summary This plan fulfills the requirements of both the State of Minnesota Mississippi River Critical Area order and the Management Plan for the Mississippi National River and Recreation Area by the National Park Service. It does this by documenting the City's river corridor resources and setting forth those policies and implementation strategies the City has adopted to protect the natural, cultural, historic, commercial, and recreational values of the river corridor. The river corridor is roughly 1,000 feet on each side of the river but adjusted to follow roads and other major landmarks. Goals for the river corridor are established that cover all the categories required by both the State and Federal requirements. Natural, cultural, and economic resources are briefly reviewed with special emphasis on the opportunities and problems foreseen along the corridor. The corridor within Minneapolis has been divided by the State for policy purposes into an Urban Developed District, an Urban Diversified District, and an Urban Open Space District. The plan s general land use policies emphasize improving public access to and movement along the banks of the river, creating more park space, enhancing river-oriented recreation opportunities, reducing the amount of industry and open storage, attracting development that is compatible with the river, protecting natural features, and reducing adverse visual impacts. Historic properties and districts will continue to be protected. Outside the downtown area, the height and setback of structures along the river will be carefully regulated. The plan intends to strike a balance between protection and utilization of river related resources. The key element in protection and utilization revolves around appropriate public management since the corridor s most significant natural resources are under the jurisdiction of the Minneapolis Park and Recreation Board, the University, or the State. Regulations already in place will continue to protect bluffs, steep slopes, riverbanks, wetlands, and major vegetation while controlling flooding, erosion, and runoff and the City of Minneapolis will continue to enforce, review and revise its regulations and ordinances to ensure the preservation of the Critical Area. Summary

3 1 Section I. Introduction The Mississippi River was the incentive for creation of a town called St. Anthony; the City's first settlers were drawn to the milling and waterpower potential of St. Anthony Falls, and St. Anthony eventually merged with the other new community on the opposite bank to become Minneapolis. With the decline of the lumber and grain milling booms the City seemed to turn its back to the river. In the 1950's and 1960 s, with the construction of the St. Anthony Falls locks permitting barge access to the Upper River, there was a renewed interest in the river as an economic resource. Since that time, the City has viewed the Mississippi River as a historic, cultural, and recreational resource. Interest in alternative uses of the river rose sharply in the early 1970s, with designation of the St. Anthony Falls Historic District by the state in The Heritage Preservation Commission was created in 1972, giving the City strong control over construction in the St. Anthony Falls Historic District. Also in 1972, the City published the visionary 130- page plan for the River called Mississippi/Minneapolis. The major concepts of Mississippi/Minneapolis were adopted as part of the City's comprehensive plan in Several actions occurred in 1976 recognizing the importance of the Mississippi River. The Minneapolis City Council, the Minneapolis Park and Recreation Board (MPRB), and the Minneapolis Housing and Redevelopment Authority reached a joint powers agreement creating the Riverfront Development Coordination Board and giving it jurisdiction over the central riverfront area of Minneapolis. That year the MPRB also appointed the Long Range Regional Riverfront Development and Acquisition Committee, which prepared a report on the recreational and park land potential of the Mississippi River corridor in the City. And finally, in 1976 the state by Executive Order declared the Mississippi River corridor through the metropolitan area as a Critical Area, requiring each municipality to develop plans and regulations for its protection. The first, approved by the Metropolitan Council, Environmental Quality Board, and City Council in 1989, addressed many but not all of the same subjects as this document. In 1988, Public Law established the Mississippi National River and Recreation Area (MNRRA) as a unit of the National Park Service. The MNRRA was established by Congress to (1) protect, preserve, and enhance the significant values of the Mississippi River corridor through the Twin Cities, (2) encourage coordination of federal, state, and local programs, and (3) provide a management framework to assist the State of Minnesota and units of local government in the development and implementation of integrated resource management programs and to ensure orderly public and private development in the area. A Final Comprehensive Management Plan for the MNRRA was approved by the Secretary of the Interior in This plan lays out a policy-level framework for management of the river corridor. In 1997, the City of Minneapolis requested and was awarded funding from the National Park Service to help update its Critical Area policies and ordinances and, in conjunction, consider incorporating the voluntary MNRRA guidelines. If Minneapolis Critical Area Plan does conform with MNRRA guidelines, the City will be eligible for funding assistance from NPS to help implement the plan. Section I - Introduction

4 2 I. A. Conformance with Critical Area Act and MNRRA Management Plan This plan fulfills the requirements of both the State of Minnesota Mississippi River Critical Area order and the Comprehensive Management Plan for the Mississippi National River and Recreation Area by the National Park Service. It is an update of the 1989 Critical Area Plan and includes additional policies. It documents the City's river corridor resources and sets forth those policies and implementation strategies the City has adopted to protect the natural, cultural, historic, commercial, and recreational value of the river corridor. (Note that the plan generally does not address the holdings of the University of Minnesota and higher levels of government over which the City has no control. The University has prepared its own Critical Area Plan. The Minneapolis Park and Recreation Board is subject to all City of Minneapolis land use policies and regulations.) The purposes of the state s Mississippi River Corridor Critical Area designation are to: protect and preserve a unique and valuable state and regional resource for the benefit of the health, safety, and welfare of the citizens for the state, region, and nation; prevent and mitigate irreversible damage to this state, regional, and national resource; preserve and enhance its natural, aesthetic, cultural, and historic values for the public use; protect and preserve the river as an essential element in the national, state, and regional transportation, sewer and water, and recreational systems; and protect and preserve the biological and ecological functions of the corridor. The purposes of the MNRRA Management Plan are to: preserve, enhance, and interpret archeological, ethnographic, and historic resources; enhance opportunities for public outdoor recreation, education, and scenic enjoyment. Preserve, enhance, and interpret natural resources; provide for continued economic activity and development; improve the public s understanding of the river and promote public stewardship of its resources; and recognize and strengthen people s relationships with the river as a dynamic part of our heritage, our quality of life, and our legacy for future generations. I. B. Critical Area Planning Districts The Critical Area order established three districts within the Minneapolis Critical Area corridor that recognize existing land uses. These districts are: Urban Developed District - north of 48th Avenue North; predominantly parkland in Minneapolis. Urban Diversified District - south of 48th Avenue North to Franklin Avenue; a mix of industry, businesses, office buildings, housing, a barge terminal, two power plants, parks and parkways, and the University of Minnesota campus. Section I - Introduction

5 3 Urban Open Space District - publicly-owned forested gorge with low density housing and some institutional uses set back from the bluff. This plan is guided by many past plans and ordinances and will guide future planning and regulatory actions. For the most part, this plan brings together ideas from the City s comprehensive plan, the zoning ordinance, and several sub-area plans. In response to state or federal requirements, it does include some policies that were not specifically and clearly articulated in other documents, but those policies are consistent with past City practices or broader policies. Plans that address land in the Critical Area will be consistent with Executive Order and all other state laws. In the case of overlap of plans and/or policies, the policy most protective of the Critical Area will prevail. Section I - Introduction

6 4 Figure 1. Mississippi River Critical Area in Minneapolis Section I - Introduction

7 5 Section I - Introduction

8 6 Section II. Existing Conditions The Mississippi River corridor through Minneapolis presents a rich tapestry of natural and man-made features. A visitor to the area can experience it from the various perspectives of history, geology, architecture, engineering, ecology, and economic development. This section presents a brief overview of the natural, cultural, economic, and visual resources of the Mississippi River Critical Area. A. Natural Resources A-1. Upper River A-2. Central Riverfront A-3. Lower Gorge A-4. Bluffs and Steep Slopes A-5. Major Vegetation A-6. Natural Drainage Routes and Wetlands A-7. Floodplains B. Cultural Resources B-1. National Historic Landmarks B-2. National Register of Historic Places B-3. Local Landmarks and Historic Districts B-4. National Civil Engineer Landmarks C. Economic Resources C-1. Commercial Navigation C-2. Upper Harbor Terminal C-3. Heavy Industry C-4. Light Industry, Office, Commercial, Hospitality and Non-Profit Uses C-5. Public Assistance for Redevelopment D. Visual Quality D-1. North Mississippi Regional Park D-2. Upper River D-3. Central Riverfront D-4. University of Minnesota Campus D-5. Lower Gorge D-6. Ford Dam Area E. Public Investments E-1. Drinking Water System E-2. Sanitary Sewer System Section II Existing Conditions

9 7 II. A. Natural Resources Natural conditions along the Mississippi River through Minneapolis vary from one section to the next depending on whether the site is above or below St. Anthony Falls and on current land use and development. Some portions of the riverfront have been highly altered to suit industrial needs (e.g., the Upper and Central Riverfronts) while others are very much as they were at the time of exploration by Europeans (e.g., the Lower Gorge as seen from the water). The general trend of land stewardship over the last 25 years along the river in Minneapolis has been one of returning the river s edge to a natural condition from its heavily altered state. The river shoreline is in the process of being revegetated and in many locations is being dedicated to walking and river oriented recreation. The West River Parkway and its associated plazas, overlooks, paths, and linear parks is a good example of this change from a heavy industrial heritage. II. A-1. Upper River From the Plymouth Avenue bridge to the Soo Line Railroad Bridge (just south of the Camden Bridge), only a few vestiges of the original natural features remain. Even the naturally low slopes have been re-contoured in many locations to accommodate shoreline development; only minor bluffs exist above the falls. Several small islands are untouched except for the flooding and scouring action of the river. Upriver of the Soo Line Bridge, there are mature woods on the west bank that are protected by North Mississippi Regional Park. Many birds, small mammals, and even deer inhabit this riverfront woodland. Along the east bank, there are copses of trees in the Gluek, Edgewater, and Marshall Terrace Parks, near St. Anthony Parkway, and on the grounds of the Minneapolis Water Department in Fridley. Other scrub trees cling to the shoreline in many other locations where urban development has cleared the rest of the site. Shingle Creek enters the river near the Camden Bridge after flowing through Brooklyn Park, Brooklyn Center, and the Camden Neighborhood. Evidence of beaver work is often apparent along the creek east of I-94. Bassett s Creek enters the river just downstream of the Plymouth Avenue Bridge. Very few wetlands remain in the Critical Area. Minor bluffs confine the floodplains to portions of the Upper Mississippi Regional Park and portions of the Scherer Lumber and Graco sites near the Plymouth Bridge. II. A-2. Central Riverfront From Plymouth Avenue to the 10th Avenue Bridge, linear parks have created an attractive wooded stream valley, and the residential area on Nicollet Island add a green canopy. The river edge includes natural woods, manicured parks, hard plazas, rocky bluffs, and man-made structures. St. Anthony Falls is the dominant natural and visual feature here (other than the river itself) and is a major tourist and resident attraction. The steep bluff line begins to rise below the falls. II. A-3. Lower Gorge Section II Existing Conditions

10 8 The Lower Gorge is the least-changed section of the river. Its steep, heavily wooded bluffs retain much of their original character. In fact, from the water it is difficult in some places to recognize that there is a major city just beyond view. Access to the water is difficult here, but people have worn paths down the slopes, causing some problems. Local neighborhood plans have recommended many new or improved stairways, overlooks, paths, and landings along with the restoration of much vegetation. Shoreline sandbars are a recreational attraction for adventurous hikers and sunbathers. West River Parkway runs along the river down to Minnehaha Park, and from there, a bicycle and pedestrian path extends along and below the bluff to Historic Fort Snelling State Park. Bridal Veil Creek cascades from the bluff near the Franklin Avenue bridge. II. A-4. Bluffs and Steep Slopes Approximate location of slopes from 12 to 18 percent and exceeding 18 percent is included within this report. The identification and protection of steep slopes on individual sites is required during site plan review for any proposed development. II. A-5. Major Vegetation Most of the major tree stands are located on or above the steep slopes of the Lower Gorge. II. A-6. Natural Drainage Routes and Wetlands Shingle Creek, Bassett Creek, Bridal Veil Creek, and Minnehaha Creek all enter the River. There are very few wetlands remaining in the Minneapolis Critical Area. II. A-7. Floodplains The approximate location of the 100-year floodplain is included within this report. The City s zoning ordinance and maps prepared by the Federal Emergency Management Agency should be consulted for further detail. Section II Existing Conditions

11 9 Figure 2. Minneapolis Mississippi River Critical Area Slope Section II Existing Conditions

12 10 Section II Existing Conditions

13 11 II. B. Cultural Resources Near the banks of the Mississippi River are many reminders of the settlement of Minneapolis because of the important early role of the river in transportation and water power. St. Anthony Falls has religious significance to Native Americans and gave birth to the important lumber and flour milling industries. Thus, many historically-designated properties are located in the Central Riverfront. II. B-1. National Historic Landmarks Pillsbury A Mill, 301 Main St. S.E. Washburn Mill Complex, S. 1 st St. & Park Ave. II. B-2. National Register of Historic Places Capellen Memorial Bridge (Franklin Ave. over the Mississippi River) Cedar Avenue Bridge (10th Ave. S.E. over the Mississippi River) Grace Evangelic Lutheran Church (234 Harvard St. S.E.) Intercity Bridge (Ford Pkwy. over the Mississippi River) Lock & Dam No. 2 (Mississippi River north of Lake St.) Minneapolis (Grain Belt) Brewing Company (vicinity of Marshall St. & 13 th Ave. N.E.) Minneapolis Fire Department Repair Shop (24 University Ave. N.E.) Minneapolis Warehouse Historic District (roughly bounded by River St., 1st Ave. N., 6th St. N., 2nd Ave. N., 5th St N., 5th Ave. N., 3rd St. N., & 10th Ave. N.) Minnehaha Historic District (roughly bounded by Nawadaha Blvd., Hiawatha Ave., Minnehaha Ave., W. 49 th St., Minnehaha Creek & the Mississippi River) Minnesota Soldiers Home Historic District (roughly bounded by Minnehaha Pkwy., Minnehaha Creek & the Mississippi River) St. Anthony Falls Historic District (roughly bounded by 2 nd St., 10 th Ave. S., 6 th Ave. S.E., University Ave., 3 rd Ave. N.E., Main St. N.E., & Plymouth Ave.) Twin City Rapid Transit Company Steam Plant ( th Ave. S.E.) University of Minnesota Old Campus Historic District (roughly bounded by University Ave. S.E., East River Rd., Pillsbury Dr. S.E. & Church St. S.E.) II. B-3. Local Landmarks and Historic Districts Capellen Memorial Bridge (Franklin Ave. over the Mississippi River) Florence Court (1022 University Ave. S.E.) Minneapolis (Grain Belt) Brewing Company (vicinity of Marshall St. & 13 th Ave. N.E.) Minnehaha Historic District (roughly bounded by Nawadaha Blvd., Hiawatha Ave., Minnehaha Ave., W. 49 th St., Minnehaha Creek & the Mississippi River) Section II Existing Conditions

14 12 St. Anthony Falls Historic District (roughly bounded by 2 nd St., 10 th Ave. S., 6 th Ave. S.E., University Ave., 3 rd Ave. N.E., Main St. N.E., & Plymouth Ave.) Warehouse Historic District (roughly bounded by 1 st Ave. N., 2 nd St. N., 4 th Ave. N., 2 nd Ave. N. & 6 th St. N.) University of Minnesota Greek Letter Chapter House Historic District (roughly bounded by University Ave. S.E., 5 th St. S.E., 10 th Ave, S.E., Harvard St. S.E. & Delaware St. S.E.) II. B-4. National Civil Engineer Landmarks Stone Arch Bridge of the Great Northern Railway (Mississippi River, south of St. Anthony Falls) II. C. Economic Resources The Mississippi River in Minneapolis was once the engine of the regional economy, but that role has diminished greatly with the advent of transportation alternatives, the loss of grain and lumber milling and the abandonment of direct water power, the relocation of many other nearby industries, and the decline of barge traffic. The river now provides a less direct economic boost to Minneapolis through new forms of economic activity, even though barge shipping is still active through the upper and lower St. Anthony Falls locks and Lock and Dam No.1 to the Upper Harbor Terminal above Lowry Avenue. Office buildings, restaurants, and housing exemplify the current and future growth that benefit from the beauty of the river rather than its opportunities for transportation or power. Tourism is a major industry in Minneapolis, and visiting the Central Riverfront is a common activity for many visitors to Downtown. St. Anthony Falls draws viewers from far and wide. Many millions of dollars of private and public investment have been poured into properties along the Central Riverfront and elsewhere since industrial uses have declined. City of Minneapolis policies reflect recognition of the river s changing role and seek further benefits by improving it as a natural, cultural, and recreational resource. Consequently, many plans prepared by the City, and the MPRB, and the former Minneapolis Community Development Agency (MCDA, now Community Planning and Economic Development CPED) over the past four decades have emphasized the reclaimed river as an economic catalyst for economic development. II. C-1. Commercial Navigation Histories of Minneapolis discuss the long-held desire by civic leaders to extend river navigation upstream from St. Paul. In the nineteenth century the main goal was to bring passenger vessels up to the Lower Falls. Decades of rivalry between St. Paul and Minneapolis, and among water power magnates and navigation proponents, led to many fruitless proposals to build locks and dams in a number of places between the Lower Falls and Fort Snelling. Finally, a dam construction project was started, only to have a higher dam near the mouth of Minnehaha Creek scuttle the effort. This resulted in the "High Dam," more commonly known Section II Existing Conditions

15 13 as the Ford Lock and Dam (Lock and Dam #1), so named following sale of power generation rights to Henry Ford to secure a deal for an automobile manufacturing plant. The pool of water behind the Ford Dam allowed passage up to the flats below the Washington Avenue Bridge. As soon as this section of the river was opened in 1917, City leaders and navigation boosters began lobbying Congress to construct further locks to allow water navigation to go beyond the Falls of St. Anthony. The lock at the Lower Falls dam was finally completed in Construction of the lock at the Upper Falls was begun soon after in 1959 and completed in These locks were known as the "Upper Harbor" project, because they opened the area above the Falls as a new harbor. Opponents of the project argued at the time that it was an unnecessary and unwise investment that would result in few benefits to the City. In 1999, nearly 40 years after the opening of the Upper Falls lock, the results from both a land use and economic development standpoint are clear. There remain four barge terminal users: a sand and gravel operation, a scrap metal yard, a cement storage facility, and the Upper Harbor Terminal. The following key points illuminate the present situation regarding river navigation on the Upper River: Annual federal cost for navigation on the Upper River is $3.1 million, budgeted by the Army Corps of Engineers for lock and channel maintenance. Only two barges and a towboat fit through the local locks local locks during any one lockage, compared to fleets of up to nine barges on all the locks down river, from St. Paul to St. Louis. Roundtrip time from the Port of St. Paul to the Upper River is 12 hours. Additional costs due to less efficient two-barge operations are $0.50 per ton on the Upper River, compared to $0.25 on the Minnesota River and $0.10 to move barges around the Port of St. Paul. The minimum threshold set by the Corps of Engineers to justify the public cost of barging is one million tons. Tonnage totals for the Upper River fluctuate, with a peak of 2.3 million tons in 1975 and low of 0.66 million tons in Average tonnage from 1989 to 1998 was 1.58 million tons. The barging season on the Upper River is usually about eight months, depending on the weather. Upper River barge terminals employ approximately 80 persons, many on a seasonal basis. Barge terminal operations occupy 72 acres of land. Private businesses operating barge terminals pay annual property taxes of $300,000 on 32 acres (an average of $9,375 per acre). II. C-2. Upper Harbor Terminal Perhaps the key policy issue for the Upper River is the status and future of the Upper Harbor Terminal (UHT). This 48-acre barge terminal facility is owned by the City of Minneapolis under the management of the Department of CPED, with a private company handling operations. Several acres of the site are used to store dredge materials, basically riverbed sand, dredged by the Corps of Engineers to Section II Existing Conditions

16 14 maintain a nine-foot deep barge navigation channel on the Upper River; the area south of the docks is fully used for tree shredding and container storage. In addition to dredge materials, the UHT site contains stores of coal, pit pig iron, pipe, aggregate and bunker sand. The remaining parts of the site contain a warehouse, grain elevator, three concrete storage domes, asphalt tanks, a railroad yard, truck scales and three barge docking areas. The fate of the Upper Harbor Terminal will be determined by the Minneapolis City Council. Although the terminal has generated a positive cash flow in the past, service on the original debt has caused annual deficits. The City has subsidized the operation since 1990, fluctuating between the amounts of $100,000 to $1 million per year. Bonds used to finance the terminal were paid in With the bonds paid, it was anticipated that the UHT would generate some revenue for the City. However, between 2000 and 2004 Terminal operations generally broke even. In 2005 the operating agreement for the Terminal was amended making the operator entirely responsible for losses at the Terminal. Additionally, any net revenues that are generated will be split evenly by the City and the operator. Although positive cash flow in subsequent years will provide revenue to the City, the UHT will continue to be exempt from property taxes. This lack of a tax generating use of this 48-acre riverfront site is an ongoing opportunity cost. Even if much of the site were used as non-taxed parkland, the adjacent properties would no doubt rise in value. Other points for consideration include: Currently, eight percent of material moved through the UHT is related to business in Minneapolis; an additional 24 percent is for the metropolitan area, 47 percent is for the remainder of Minnesota and 21 percent of the business at the Terminal is generated in other states or Canada. The UHT has a low job count historically with employment density less than one job per acre. The UHT, at roughly 250,000 tons per year, generates less than one-half to twothirds of the annual tonnage moving through the Minneapolis locks. The U.S. Army Corps of Engineers, and ultimately the U.S. Congress, have final say over the future operation of the three locks in Minneapolis. Private barge terminal users benefit from the City's operation of the UHT, since the UHT is a significant factor in justifying annual federal expenditures on the Minneapolis locks and channel maintenance operations. All of the businesses that operate private terminals provide necessary commodities and services to the City and region. For instance, Aggregate Industries provides aggregate for construction and for making cement. American Iron and Supply buys and ships recyclable metals. The availability of barging as a transport option allows these businesses to operate at a lower cost. It should be noted that many competing businesses operate without access to a commercial navigation channel. Barge terminals are intermodal transfer facilities, and therefore bulk materials are loaded on or off rail cars and trucks, concentrating rail and truck traffic on the Section II Existing Conditions

17 15 west bank of the Upper River. Relocating this traffic to other facilities may cause minor regional impacts. Not all of the shift to other modes would be to trucks, and some origins and destinations may be closer to other terminals. In fact, there are over 30 other barge terminals in the Twin Cities metropolitan area, on the Mississippi in St. Paul and on the Minnesota River. It is likely that terminals in St. Paul can absorb the volumes moving through the Upper River. If barging were discontinued on the Upper River, it is likely that the pattern of truck traffic in Minneapolis would change. There may be a reduction of truck traffic in the area of the Terminal but there may be also be an increase in traffic through the City from terminals in St. Paul or on the Minnesota River. II. C-3. Heavy Industry In the first half of the twentieth century when the construction of the locks at St. Anthony Falls was proposed, the future of cities and their economic development seemed inextricably linked to heavy manufacturing, which required easy access to bulk materials. In reality, Minneapolis historically has played a limited role in complex manufacturing. Rather, the City's original purpose was bulk materials processing sawing logs and milling wheat. The capital accumulated by these early industries was subsequently reinvested, transforming the City's economy away from industry to office and high-technology businesses. The small number of businesses located along the Upper River to take advantage of barging are bulk material handling businesses rather than the hoped for manufacturing plants. By the very nature of their operations, these businesses require open storage of materials piles of sand, gravel, and scrap metals. These materials are unsightly viewed from the land or river, and are also frequently noisy and dirty operations that will understandably conflict with other uses. Currently, job densities for the bulk material industries are low, approximately one job per acre, with seasonal layoffs. City guidelines seek one job per thousand square feet of building, with a minimum of 40 percent site coverage which works out to approximately 17 jobs per acre. Much of the benefits of the City s effort on the North Washington Industrial Park have come by offering land with the objective of placing businesses that provide jobs with good wages in enclosed facilities in growth industries, such as graphic arts and laboratories. The jobs per acre of these light industries are much higher than the current barging, land intensive uses such as the UHT. The jobs provided are also year-round, rather than seasonal. The basic direction of industry and employment at the turn of the twenty-first century is perhaps easier to predict than during previous decades. Manufacturing employment in the United States continues to decline, while service and information jobs are increasing. While river navigation may have been the eighteenth and nineteenth century's vital communication and transport infrastructure, sustained growth in the Upper River area could very well be more dependent on new high speed communications cables than on barges. Section II Existing Conditions

18 16 In addition to heavy industrial uses that take advantage of commercial navigation, the Upper River and Central Riverfront include a fairly limited number of other heavy industrial uses that do provide more intensive job and tax benefits to the community. These uses should be maintained as appropriate. II. C-4. Light Industry, Office, Commercial, Hospitality and Non-Profit Uses The Upper River, Central Riverfront and, to a much lesser degree, the Lower Gorge, contain a wide variety of business and non-profit uses that provide substantial numbers of jobs and taxes and generate economic activity that is important to the City and metropolitan area. Some of these businesses are the outgrowth of businesses tied to the City s earliest days (e.g., the General Mills R and D facility) and others have been more recently brought to the corridor. These include many light industrial businesses, significant amounts of office space, hospitality uses such as hotels and restaurants, and commercial uses that support the corridor s residents, employees and visitors. In addition, the corridor contains several non-profit facilities that provide jobs and educational, cultural or other services. II. C-5. Public Assistance for Redevelopment The City guides and controls development on large designated sites undergoing redevelopment. Much of the Urban Diversified and Urban Developed Districts in Minneapolis, where not controlled by the University of Minnesota or the MRPB, is within a CPED City Redevelopment Project Area. With City Planning Commission comment and City Council approval CPED adopts urban redevelopment plans that require design and development guidelines to be followed for any form of development within the district where property is purchased from or other substantive assistance is received from CPED. These development guidelines must conform to City land use regulations. II. D. Visual Quality The titles of the three Critical Area land use districts Urban Developed, Urban Diversified, and Urban Open Space help describe the visual character of those reaches of the Mississippi River in Minneapolis. The following sub-areas offer additional description. II. D-1. North Mississippi Regional Park The river and shores are broad and flat with second-generation vegetation growing wildly along the banks. The water is calm and inaccessible to barges. Occasional recreational boat landings and other structures pierce the vegetated edge, but other manmade features have negligible visual impact or benefit. II. D-2. Upper River The river and terrain of this area are similar to that described to the north, but beyond that the similarity stops. Development is largely industrial and commercial, built near the water in many cases with fill and retaining walls. Barge activity adds to the visual interest in this area. Although vegetation is Section II Existing Conditions

19 17 minimal, it helps screen many uses unrelated to the river. The visual effect of the heavy industry on the west bank is unattractive and generally considered incompatible with the river corridor. Occasional river edge parks provide naturalistic relief along a part of the river but invariably afford a view of heavy industrial activities and outdoor storage across the water. II. D-3. Central Riverfront The Central Riverfront is the most visually interesting and varied segment of the Minneapolis Critical Area. This area hums with activity, and dramatic views are available in every direction. The former mills, the arching bridges, the river cascading over dam aprons, the transmission line towers, the high-rise housing, the smoke stacks of the power plants, and barges crawling through the locks all contribute to the dramatic visual setting. The urban plazas, overlooks, promenades, and bridges provide many vantage points. Downtown and the Main Street development provide an active and varied backdrop. In contrast, areas like the Father Hennepin Bluffs and Nicollet Island s east channel provide secluded, wildly vegetated retreats. Recent park improvements at Boom Island and the mouth of Bassett's Creek have enhanced the natural setting near Plymouth Avenue. St. Anthony Falls is the birthplace of Minneapolis and is of primary importance to the City's history and its future. As the only natural waterfall on the Mississippi River (now altered), St. Anthony Falls provided the power source that nurtured the City of Minneapolis. It has traditionally been used for many purposes, as a public amenity as well as industrial use. The Falls is now the core of the City s Central Riverfront redevelopment efforts to enable people to live nearby and to enjoy the vitality of the urban setting and its natural resources. St. Anthony Falls is the center of a 150-acre regional park and included in the state-designated St. Anthony Falls Heritage District. It lies between a national engineering landmark (James J. Hill s Stone Arch Bridge) and the site of the first public bridge across the Mississippi River. The Falls was a major tourist attraction in the 1850s, and both state and local governments are investing heavily in making the area a major attraction again. It is also adjacent to the last lock constructed on the Mississippi at the head of navigation for the river. St. Anthony Falls has historic, economic, scenic, and recreational significance to the nation, the state, the region, and the City, and should be treated with the utmost respect. Accordingly, the City shall continue to participate vigorously on the St. Anthony Falls Heritage Board as established by the State legislature in II. D-4. University of Minnesota Campus The bluffs, dramatic geologic formations in themselves, first create a sense of enclosure as one travels downstream toward the University of Minnesota. Massive buildings atop the bluffs accentuate the enclosure as well as reinforce the urban setting. Numerous bridges, the Lower St. Anthony Falls lock and dam, and roadways are further indicators of man s intrusion into this part of the gorge. In contrast and as a transition to the Lower Gorge, springs, trickling water, vines, Section II Existing Conditions

20 18 and mature native trees create cool refuges below the bluffs. (Note: the University has prepared a separate plan for its segment of the Critical Area.) II. D-5. Lower Gorge Steep bluffs and dense woodland vegetation seemingly cut off human access to the river through the Lower Gorge and, from the water, screen from view all structures but a few church steeples. Though various kinds of watercraft use the river, the natural gorge appears to be totally apart from the city around it. II. D-6. Ford Dam Area The Ford Dam and Lock and its associated activity of barges, motorboats, fishermen, and visitors, draw attention away from the surrounding gorge. Roads, paths, and views are focused instead on these kinds of human activity. II. E. Public Investments II. E-1. Drinking Water System In recent years, the City has pumped between 23 and 24 billion gallons of water annually from the Mississippi River; on a daily basis, this amounts to about 65 million gallons. Close to 63 million gallons per day enter the water distribution system. Of that amount, almost 20 percent is piped to suburban communities, an average of 12.3 million gallons per day. As the metropolitan area grows and a demand for water increases, the existing surface water supplies will be hard-pressed to meet the needs. Increasingly, municipalities and municipal agencies are looking to groundwater sources to augment the present surface water sources. Though domestic water is supplied primarily from surface water sources (in Minneapolis, the Mississippi River) a number of commercial and industrial firms do tap groundwater supplies. Drought and other demands for river water affect Minneapolis water supply and quality. A City of Minneapolis Water Department study estimated that the City has a shortterm standby need of 40 to 50 million gallons per day for basic supply, water quality, and other environmental purposes. II. E-2. Sanitary Sewer System The City s sewer system was originally built to carry both sanitary sewage and storm water runoff. As the community grew, the normal volume of sewage also increased. Minneapolis has worked for many years to separate its sanitary and storm sewer systems so that during periods of heavy rain, sewage is not discharged into the river. The City of Minneapolis continues to work on completing its Combined Sewer Overflow (CSO) projects throughout the City. Section II Existing Conditions

21 19 Section III. Critical Area Policies A. Land Use Policies A-1. Public Benefits of the River A-2. Economic Resources A-3. Appropriate Riverfront Land Uses A-4. Industry along the River A-5. Public Access A-6. Public Facilities along the River B. Site Development Standards and Visual Quality Policies B-1. General Intent B-2. Scenic Quality B-3. Views Of and From the River B-4. Site Layout and Architectural Design B-5. Structure Setbacks B-6. Building Height B-7. Screening Intrusive Existing Development B-8. Parking and Storage B-9. Vegetative Cutting B-10. High Voltage Transmission Lines B-11. Billboards B-12. Public Improvements B-13. Scenic Overlooks C. Natural Resources Policies C - 1. Shoreline Protection C - 2. Slopes of 12 to 18 Percent C - 3. Slopes Greater than 18 Percent or Bluffs C - 4. Vegetation C - 5. Erosion C - 6. Flooding C - 7. Soil and Water Contamination C - 8. Dredge Material C - 9. Intergovernmental Water Quality Efforts C Surface Water Runoff

22 20 C Wetlands D. Cultural Resource Policies E. Economic Resource Policies E -1. River Corridor Economic Development E -2. Parks and Historic Interpretation E -3. Upper Harbor Terminal F. St. Anthony Falls Policies G. Park, Parkway, and River Access Policies G - 1. Recreation Variety G - 2. River-Oriented Recreation G - 3. Continuous Parkway G - 4. Regional Trails G - 5. Access Routes to the River G - 6. Boat Access Points G - 7. Surface Water Use G - 8. Natural Feature Protection G - 9. Park and Trail Land Acquisition H. Public Facilities and Land Policies H - 1. Drinking Water Source H - 2. Upstream Treatment H - 3. Water Conservation and Supply Plans H - 4. Sewer Separation H - 5. Infiltration and Inflow H - 6. Water Quality Management H - 7. Flood Control I. Transportation Policies I - 1. Streets and Roads I - 2. Bridges I - 3. Bicycle and Pedestrian Facilities I - 4. Railroad Lines I - 5. Railroad and Truck Terminal Locations J. Electrical Transmission Lines III. A. Land Use Policies Citywide land use policies play a role in controlling the impact of development within the Critical Area corridor. The policies in this section are those citywide policies which are most important along the river in fulfilling the purpose of the Critical Area Act and the MNRRA Management Plan.

23 21 III. A-1. Public Benefits of the River The City of Minneapolis should maximize over time public access to and enjoyment of the river corridor, public appreciation of the river s many resources, and protection and enhancement of the river corridor s natural, scenic, and cultural resources. Regulate land uses through the Minneapolis Zoning Ordinance as needed to implement this plan and to act in accordance with Executive order Work with the MRPB to extend the parkway system. Work to redevelop river corridor land in a manner compatible with this plan. III. A-2. Economic Resources The City of Minneapolis should continue to use the river as an economic resource while accomplishing the protection purposes of the Critical Area designation. Plan, zone, and redevelop land along the river for activities that benefit from and enhance the river. These may include but are not limited to housing, restaurants and taverns, office buildings, parks, and private water-related entertainment businesses such as excursion boats. The City should examine potential reuses for existing uses that do not adhere to the tenets of this plan; the City acknowledges that certain riverdependent businesses will remain along the river edge for the foreseeable future even though they are not river-enhancing. An example of this includes power plants. III. A-3. Appropriate Riverfront Land Uses The City will work to preserve, enhance, and create a sustainable natural and historic environment citywide. The Mississippi River is one of the major formgiving elements of the community, and City actions should enhance it. Land uses within the Critical Area should relate to their riverfront location in a manner that enhances the river environment. Land uses that may be considered river enhancing will vary depending on the location and context. The City will follow the land use guidelines of The Minneapolis Plan except where they may be modified or made more explicit by City-adopted small area plans; subsequent small area plans will further enhance and promote the policies necessary to maintain and protect the Critical Area. Activities which have no need for river locations or which would have detrimental effects on a high quality river environment should not be allowed to locate or expand within the Critical Area. Appropriate riverfront land uses would include: Upper River The Upper River is an area suited for new housing, industrial and office jobs, and an extended parkway system. Job-intensive light industries not located immediately on the riverfront would be appropriate in certain locations. Largely residential areas with parks and open space are recommended.

24 22 Expansion of existing and development of new appropriate industrial, commercial, and other non-residential uses that serve to preserve and enhance the residential character of the district are encouraged. Nearly all of the land in the Urban Developed District in the City of Minneapolis is now part of the North Mississippi Regional Park or right-ofway for Interstate 94 and should continue in that use. Several lateral greenway connections should be considered to the river from nearby neighborhoods including: o 53 rd Avenue North o 49 th Avenue North o 41 st Avenue North o 35 th Avenue North o 29 th Avenue North o 26 th Avenue North o 3 rd Avenue Northeast o 8 th Avenue Northeast/Plymouth Avenue o 13 th Avenue Northeast o 14 th Avenue Northeast o 18 th Avenue Northeast o 22 nd Avenue Northeast o 27 th Avenue Northeast o 29 th Avenue Northeast o Burlington Northern Santa Fe bridge o Dowling Avenue o Lowry Avenue o West Broadway Central Riverfront Downtown is the major growth center of the entire region. It is a dense, mixed-use area of employment, housing, entertainment, and culture. The river corridor is an important element of Downtown, providing open space and recreation while attracting new housing, shops, and offices. Housing is expected to play an increasingly significant role in the Central Riverfront. The St.Anthony Falls Historic District should be preserved and the riverfront greenway system improved and extended. The river corridor should be more closely linked to Downtown via extensions of the street grid and streetscape improvements to key perpendicular streets. Development should retain the diversity of land uses and transportation while making the riverfront accessible to the public, subject to other conditions such as public easements or separation from the water by public rights-of-way. Residential, commercial and industrial development should occur as appropriate that complements the riverfront or historic atmosphere and environmental resources. Businesses that complement the riverfront or historic atmosphere or those that contribute significantly to the economic well-being of the community are encouraged.

25 23 Development that expands public access to and enjoyment of the river including parks and open space is supported. Entertainment, historic, recreational and cultural facilities that would benefit from the river views or land uses related to the river, as well as schools related to studying the river, the natural environment, or river related industry would be supported. Lower Gorge The easterly end of the Lake Street corridor designated as a potential growth center for housing; existing public parkland is recommended to be retained in this area. A lateral greenway connection should be considered to the river from nearby neighborhoods at 40th Street South, connecting to the Midtown Greenway. Recreation that is based on water use and that capitalizes on an aesthetically stimulating setting (including viewing of the river and its uses) is encouraged, along with open space for passive and un-programmed recreation or preservation of natural resources. Conservation and protection of the existing and potential recreational, scenic, natural, and historic resources and uses within this district for the use and enjoyment of the surrounding region is necessary. Transportation role of the river shall be preserved in this district. III. A-4. Industry along the River The City will continue to work to reduce heavy industrial land use along the riverfront, to improve the appearance of industries that remain, and to reduce the noise, vibration, air pollution, and water pollution from those that remain. In addition: Industry shall be prohibited on Nicollet Island. Industries that are not river-dependent should be set back from the water s edge to allow for public open space and access. Three power plants (two owned by Xcel Energy and one by the University of Minnesota) will continue to operate along the riverfront for the foreseeable future. The Xcel hydroelectric plant at St.Anthony Falls is powered by the river current. The City is of the opinion that the University of Minnesota power plant is incompatible with existing and planned adjacent land uses, specifically because of its truck and rail traffic, its generation of air pollution, and its inhibition of recreational river use. To the extent feasible, open storage and parking areas for the coal-fired Xcel Energy generating plant on the Upper River should be screened from view from the opposite bank and the river surface. The City is working with Xcel Energy in its efforts to convert the Riverside plant from coal to natural gas. If possible, there should be public access along the riverbank at the Xcel Energy plant on the Upper River.

26 24 The City will continue to work toward the eventual elimination of railroad spurs that do not serve river terminals or other industrial users in appropriate areas. The City, with help from other agencies, the Minnesota Department of Employment and Economic Development, and the Metropolitan Council, will continue its program to remediate and redevelop former industrial (and other) sites having polluted soils. The visual attractiveness of land uses which can be seen from the opposite bank of the river should be improved through improvements that: a. Require screening of open storage operations visible from the opposite bank or from the river except as precluded by terminal operations. b. Encourage riverbank landscaping, or negotiate public easements for MRPB landscape management. c. Encourage consolidation of open storage operations. d. Encourage site development that locates river-enhancing structures toward the river and less attractive structures, parking, or storage away from the river. III. A-5. Public Access The public should be encouraged to view the river and its river-related activities and to relax along the river. The following actions should be considered to further public access. Provide continuous public access along the riverbank in all locations including the entire Upper River. This access should ideally be on park property but may consist of an easement across private land or on City or University of Minnesota land in some cases. Where barriers to continuous public movement along the riverfront remain, such as power plants, private industry, barge terminals, or housing, the City and the MPRB will route trails and parkways around those land uses at least on a temporary basis. Such off-river routes will be improved to maintain visual design continuity with the riverfront route to the extent possible. Where feasible, lateral connections to river overlooks will be included to mitigate the loss of visual contact with the water. Extend the parkway system along the west bank of the Upper River from Plymouth Avenue to the Camden Bridge. Extend existing Main Street to connect with East River Parkway at the University of Minnesota. When feasible, extend the public streets and/or rights-of-way to the vicinity of the bluff or riverbank, consistent with the resource protection policies of this plan, to improve public access from the neighborhoods to the river. This is particularly important in the Upper River and Central Riverfront. Provide fishing piers and observation decks at appropriate spaces where the public may view river activities. Maintain or improve all river-related parks.