DRAFT SECTION 4(F) EVALUATION I. DESCRIPTION OF SECTION 4(F) RESOURCE The Section 4(f) resource discussed in this evaluation is known as the Stillwater Municipal Barge Facility property, known previously as the Aiple Property, a planned Stillwater riverfront park. The proposed action would require the use of land from the Stillwater Municipal Barge Facility property for the Alternative B-1 park road and trail and Alternative C, D, and E new bridge crossings, park roads and trails. The following identifies the amount of land that would be acquired from the Stillwater Municipal Barge Facility property to accommodate the Build Alternatives: Alternative B-1 approximately 1.4 acres; Alternative C approximately 3.6 acres; Alternative D approximately 9.9 acres; and Alternative E approximately 8.6 acres. A. DETAILED MAP Figure E-5 shows the relationship of the Build Alternatives to the Stillwater Municipal Barge Facility property. B. SIZE AND LOCATION The Stillwater Municipal Barge Facility property is a 1.0-mile long thin strip of disturbed deciduous floodplain forest, approximately 17 acres in area. The site averages approximately 300 feet in width, ranging from 100 feet to 700 feet. The property is located in the City of Stillwater and is bounded by the St. Croix River on the east, Sunnyside Marina on the south, Trunk Highway (TH) 95 and railroad tracks on the west, and boat docking facilities to the north. Portions of the property are located within the city s Floodplain and Shoreland Bluffline District. As described above, the Alternative B-1 river crossing would not impact the property; however, construction of a park access road with Alternative B-1 at the south end of the site would affect the proposed parkland. The area of the property that would be affected by the proposed action would range from about 1.4 acres St. Croix River Crossing Project E-50 Draft Section 4(f) Evaluation
Figure E-5 Location of Stillwater Municipal Barge Facility and Build Alternatives (8.5x11 b/w) St. Croix River Crossing Project E-51 Draft Section 4(f) Evaluation
(Alternative B-1) to about 9.9 acres (Alternative D) for the Build Alternatives and is potentially located throughout the property. Construction of Alternative C river crossing would affect the southern end of the property whereas construction of Alternatives D and E river crossings would affect the middle section and northern end of the property. The potential permanent acquisition from the Build Alternatives represents up to 58 percent (Alternative D) of the total property. C. OWNERSHIP AND TYPE Stillwater has owned the Stillwater Municipal Barge Facility property since the early 1920s. From 1927 until 1998, the city leased the property to various barge operators and a fertilizer company. The city has recently allowed a barge company to temporarily lease the barge docking facilities. The City of Stillwater has plans to develop the property as a riverfront park and has completed a Master Plan (Aiple Property and Kolliner Park Master Plan, December 1998) for the site. Section I.E discusses the Master Plan further. D. FUNCTION OF AND/OR AVAILABLE ACTIVITIES The Stillwater Municipal Barge Facility property is currently unused but is planned as a future city park. While park plans are still preliminary, activities on the site would be in the form of passive recreation, including picnicking, biking, walking, and fishing. E. DESCRIPTION OF EXISTING AND PLANNED USES While the site is currently unused, there are remnants of past uses. Existing structures on the site include an abandoned warehouse building (the Terra Terminal building); a sanitary sewer lift station; a few stone and brick foundations left over from a former mill (see Section I.I); a quonset storage structure; a small metal building; a barge docking facility; and miscellaneous debris. Archaeological remains from the Hersey & Bean Lumber Company have been discovered at the site of the former mill. These ruins have been determined to be eligible for listing on the National Register of Historic Places as part of the Stillwater Cultural Landscape District. (A separate 4(f) evaluation has also been completed for this 4(f) resource.) Planned future park development for the Stillwater Municipal Barge Facility property includes identifying points of natural and historical interest through the use of interpretive markers and benches. A dirt access road (paved near the property s southern entrance) also runs the length of the site. The road is separated from TH 95 above by a limestone rock face and retaining walls in various areas. Railroad tracks are adjacent to the site s western boundary. The tracks are not maintained and are currently impassible. The portion of this railroad corridor adjacent to the park has been abandoned. Stillwater has acquired rights to this abandoned segment for public use. St. Croix River Crossing Project E-52 Draft Section 4(f) Evaluation
While Stillwater has identified the site for years as an area that should be preserved for park and open space purposes, past activities on the site have mainly included industrial and commercial uses. From the mid-1800s to the early 1900s, the property was home to lumbering and milling operations. From the early 1900s until recently, the site was occupied by a barge operation and a fertilizer company. Stillwater has recently allowed a barge company to temporarily lease the barge docking facility. The 1988 Stillwater Downtown Plan identifies the Stillwater Municipal Barge Facility property as an area that should be located within the city s Park, Recreation and Open Space Land Use District. The plan proposed the district boundaries in this location to stretch approximately 2.0 miles along the St. Croix River from Sunnyside Marina to the Stillwater Yacht Club. The plan recognized the Stillwater Municipal Barge Facility property as an opportunity for the city to expand its riverfront parks and open space system when its lease with river barge operators expired in 1998. The most recent Stillwater Comprehensive Plan (December 1995) identifies the Stillwater Municipal Barge Facility property as proposed open space. The plan states that the Stillwater Municipal Barge Facility s natural environment should be preserved, while at the same time providing recreational opportunities as part of the city s riverfront park system. In December 1998, Stillwater completed a Master Plan for the Stillwater Municipal Barge Facility (referred to as the Aiple Property and Kolliner Park Master Plan). The Master Plan proposes that the Stillwater Municipal Barge Facility property be transformed into a waterfront park (Figure E-6). The proposed park concept is designed to create a recreational area that takes advantage of the site s existing natural features (e.g., views and access to the St. Croix River), while at the same time cleaning up the existing nuisance areas on the site (e.g., the abandoned Terra Terminal building). Preliminary plans for the park identified the following as potential park amenities: paved trail, woodland trail, fishing pier, restroom facility, picnic shelters and parking areas. The Master Plan also includes recommendations for demolition or possible reuse of the Terra Terminal as a visitor center. F. ACCESS AND USAGE Vehicle access to the site is currently provided at two points along TH 95. The southern access point is shared with Sunnyside Marina and is paved for some of its distance. The northern access point is located across from the Oasis Café and is a gravel road. A dirt road passes through the site and connects the two entrances. The Stillwater Municipal Barge Facility property can be reached on foot from Lowell Park by way of a small undeveloped trail cutting through the Dock Cafe property and the Andiamo boat docking facilities. The trail is privately owned and links Lowell Park with the Stillwater Municipal Barge Facility. Pedestrians can also access the site at the two driveway locations. St. Croix River Crossing Project E-53 Draft Section 4(f) Evaluation
The site also can be accessed via the St. Croix River; however, there are no developed public access points (i.e., a public dock) from the river. The 1998 Master Plan proposed future access to the Stillwater Municipal Barge Facility property at the following five locations: pedestrian access from the south end of the site; vehicle access from TH 95 at the south end of the site (this access road is currently used by Sunnyside Marina and would be shared in the future); main entry access from TH 95 opposite the Oasis Café for both vehicles and pedestrians; an improved sidewalk connection to downtown via Main Street; and a multipurpose path that would extend from the park north along the existing railroad line into downtown. The site is currently vacant of activity and thus there are few users of or visitors to the site. When developed into a city park, the site would likely receive moderate to heavy use. G. RELATIONSHIP TO OTHER SIMILAR RESOURCES The City of Stillwater owns two other parks in the project area: Kolliner Park and Lowell Park. Both of these parks are located adjacent to the St. Croix River. A third site (parkland to be donated to Stillwater at South 2nd and Nelson Streets) is being planned in Stillwater adjacent to the project area (see Figure E-5). Kolliner Park is located in Wisconsin at the east end of the Lift Bridge. Kolliner Park is an undeveloped park with fairly heavy vegetation. The park is owned by Stillwater and was closed for public use in 1979; however, the park is used by a small number of people who, for the most part, gain access to the property via the river. Lowell Park is located on the Minnesota side of the river directly adjacent to downtown Stillwater and across the Lift Bridge from Kolliner Park. Lowell Park is landscaped and has several park amenities, including a pavilion, picnic tables, park benches, restroom facility, walkways, and drinking fountains. Lowell Park is located about 600 feet north of the Stillwater Municipal Barge Facility. An existing undeveloped trail currently links Lowell Park and the Stillwater Municipal Barge Facility; however, the trail passes through privately-owned property the Dock Café and the Andiamo boat docking facility. The city has discussed the potential for a future public pedestrian link between the two parks. The New Stillwater Park, a planned park to be donated to Stillwater, is located directly adjacent to downtown Stillwater at South 2nd and Nelson Streets, southwest of Lowell Park and northwest of the Stillwater Municipal Barge Facility property. The future parkland parcel is planned to include sitting areas and playground equipment, a terraced amphitheatre, pathways, and plantings. Construction of parkland is currently anticipated for the summer of 2004. Several other parks are located along the St. Croix River in this area. The major developed facilities include Interstate State Park, William O Brien State Park, and Afton State Park in Minnesota, and Wisconsin s Interstate State Park. Smaller public facilities include St. Croix Boomsite Park and Mile Long Island in Minnesota. Less developed public parks include Kinnickinnic State Park and St. Croix Islands Wildlife Area in Wisconsin, and several game refuges in Minnesota. St. Croix River Crossing Project E-54 Draft Section 4(f) Evaluation
Figure E-6 Aiple Property Master Plan (December 1998) (11x17 b/w) St. Croix River Crossing Project E-55 Draft Section 4(f) Evaluation
BACK St. Croix River Crossing Project E-56 Draft Section 4(f) Evaluation
H. APPLICABLE CLAUSES AFFECTING OWNERSHIP There are no known restrictions on property ownership relevant to Section 4(f) considerations. I. UNUSUAL CHARACTERISTICS An unusual characteristic of the Stillwater Municipal Barge Facility property is that it is adjacent to the Lower St. Croix River. The Lower St. Croix River is a nationally- and locally-significant river that is included in the National Wild and Scenic Rivers System for its outstanding scenic and recreational values. The river is a popular place for boating, fishing, and other water-related recreational activities. The Stillwater Municipal Barge Facility property is directly adjacent to the St. Croix River and provides a view of the river and its activities. The river s natural beauty, numerous recreational activities, and accessibility to a large urban population also contribute to the value of the property as a potential future recreational resource. An archaeological site has also been identified on the site the Hersey & Bean Lumber Company historic archaeological site. Established in 1853 as Hersey, Staples & Company, the lumber company was located on the banks of the St. Croix on the Stillwater Municipal Barge Facility property just south of present downtown Stillwater. The lumber milling operation was one of the earliest, most successful and longstanding Stillwater businesses associated with logging along the St. Croix and its tributaries. The company was in operation until 1906. Remnants of the company s office/store, main sawmill, planing mill, retaining wall, train tracks, and chimney still remain. The lumbering complex represents the community s visual and historic relationship with the St. Croix River, the importance of logging and lumbering to the development of the community, and the manner in which logs were transformed into lumber and related wood products. Because of these associations, the lumbering mill site is eligible for listing on the National Register of Historic Places. The site is also a key contributing resource in the Stillwater Cultural Landscape District, which is also eligible for listing on the National Register of Historic Places. Another unusual characteristic of the site is a naturally-flowing spring located about 500 feet south of the existing Terra Terminal building and about 50 feet west of the St. Croix River. II. IMPACTS ON THE SECTION 4(F) RESOURCE Below is a discussion of the No-Build Alternative and Build Alternatives and their impacts on the Stillwater Municipal Barge Facility property. Discussion of preliminary mitigation items relevant to all Build Alternatives is also discussed below. Mitigation items could result in both negative and beneficial impacts on the Stillwater Municipal Barge Facility. Impacts (negative and beneficial) of the final mitigation package to the Stillwater Municipal Barge Facility property will be discussed in the Supplemental Final EIS and final Section 4(f) evaluation with the selection of a Preferred Alternative. St. Croix River Crossing Project E-57 Draft Section 4(f) Evaluation
Construction of the Build Alternatives would result in temporary environmental impacts (i.e., erosion/sedimentation, dust and noise impacts) on the Stillwater Municipal Barge Facility. Although staging areas have not been defined for any of the Build Alternatives, construction activities could also include the use of the property, including the area near the Hersey & Bean site as a construction staging area. Historic features of the Hersey & Bean site would be protected as appropriate through the use of fences or other means of minimizing potential impacts, and no negative effects to the site are anticipated. Although some construction impacts would be unavoidable, most impacts would be temporary. Construction impacts and their handling are also discussed in detail in Chapter 12 of the SDEIS. A. NO-BUILD A new bridge across the St. Croix River would not be constructed under the No-Build Alternative. This alternative would not result in direct impacts on the Section 4(f) resource; however, the No-Build Alternative would be likely to result in increased congestion along TH 95, which is adjacent to the Stillwater Municipal Barge Facility. If no transportation changes are made in the area, congestion along TH 95 is expected to increase, resulting in potential access and noise impacts on the Stillwater Municipal Barge Facility. B. BUILD ALTERNATIVES Alternative B-1 Construction of the Alternative B-1 bridge would not require use of the Stillwater Municipal Barge Facility property. The Alternative B-1 bridge crossing is located approximately 2,500 feet south of the Stillwater Municipal Barge Facility property (Figure E-7a). However, construction of a park access road from TH 95 at the southern end of the property and trail connection to the Alternative B-1 bridge would require the use of approximately 1.4 acres of parkland. The construction of the park access road, consistent with the 1998 Master Plan 1 (see Figure E-6), would improve the existing park access from TH 95 at the south end of the property. The park access road with Alternative B-1 would include a shared access to TH 95 with the Sunnyside Marina. The park access road would not impact the city s plans to fully implement improvements identified in the Master Plan. The trail would also provide a connection from the Stillwater Municipal Barge Facility property to the Alternative B-1 bridge and other trails to the south along TH 95. Alternative B-1 would result in visual impacts for visitors to the future park. The Alternative B-1 bridge would intrude into views of the river looking south from the Stillwater Municipal Barge Facility property. See Chapter 7 of the SDEIS for a discussion of visual impacts. 1 The park access road is referred to as the south park entrance road in the 1998 Master Plan for the Stillwater Municipal Barge Facility property. St. Croix River Crossing Project E-58 Draft Section 4(f) Evaluation
Figure E-7a Alternative B-1 Impacts (SMBFP) (11x17 b/w) St. Croix River Crossing Project E-59 Draft Section 4(f) Evaluation
BACK St. Croix River Crossing Project E-60 Draft Section 4(f) Evaluation
Alternative C Construction of Alternative C would result in construction of a roadway bridge and connecting roadway over the south end of the Stillwater Municipal Barge Facility property. Bridge piers, pending resolution of the bridge type analysis, may also be placed just outside the park boundary and/or within the park property. Alternative C would cross the Stillwater Municipal Barge Facility property at a relatively narrow point, requiring the acquisition of about 2.2 acres of land for right-of-way (Figure E-7b). About 0.4-acre of this area would be for construction of the roadway at the bridge abutment in this area and about 1.8 acres would be for the bridge itself. Most of this latter area east of the bridge abutment would have a bridge structure crossing above it and consists of forested bluff land not likely to support future park facilities. Land from the Stillwater Municipal Barge Facility property acquired for Alternative C could remain open except for the areas where bridge structures and roadway would be placed. Approximately 1.4 acres of the future parkland would also be used for construction of the park access road and trail at the south end of the property. The park access road would provide access to the park from TH 95 near the Alternative C bridge and the trail would provide access to the future park for recreationalists from the bridge or other trails in the project area. The park access road is consistent with the 1998 Master Plan, as noted with Alternative B-1. To some extent, Alternative C would impact the city s plans to fully implement improvements to the property as identified in its 1998 Park Master Plan. Although the majority of the plan could still be implemented, the bridge overhead and bridge piers potentially placed on the property would create a physical impact for recreationalists using the southern portion of the future park. Users of the southern end of the park would experience greater noise impacts with Alternative C than with the No-Build Alternative or Alternative B-1 due to traffic using the Alternative C bridge. Conversely, with less traffic on TH 95 north of the Alternative C bridge, noise impacts on the north end of the property would be moderately reduced relative to the No-Build Alternative. Alternative C would also result in visual impacts for visitors to the future park. The Alternative C bridge would intrude into views of the river from the Stillwater Municipal Barge Facility property and create some shading at the south end of the property. Because the Stillwater Municipal Barge Facility property has not yet been developed as a park, there is the potential to coordinate the Alternative C bridge and final park design to mitigate the impacts on the Section 4(f) resource (see Section IV). See Chapter 7 of the SDEIS for a discussion of visual impacts. Alternative D Alternative D would result in the reconstruction of TH 36/95 along the western boundary of the Stillwater Municipal Barge Facility property and construction of a roadway bridge and connecting roadway over the north end of the property (Figure E-7c). Bridge piers, pending selection of a Preferred Alternative and resolution of the bridge type analysis, may also be placed St. Croix River Crossing Project E-61 Draft Section 4(f) Evaluation
just outside the park boundary and/or within the park property. Piers for the TH 36/95 interchange bridges at the river crossing bridge abutment could also be placed within the park property. Alternative D would cross the Stillwater Municipal Barge Facility property parallel to the western property boundary and at the north end of the property, requiring the acquisition of about 7.8 acres of land for right-of-way (see Figure E-7c). About 4.1 acres of this area would be for construction of the roadway and retaining walls south the bridge abutment, roadways and retaining walls for the TH 36/95 interchange, and the roadway and retaining walls for northbound TH 95 under and to the north of the Alternative D bridge. This also includes area for a 0.4-acre stormwater pond in the middle of the property to treat runoff from TH 36/95 prior to discharge in the St. Croix River. About 3.1 acres would be for the bridge itself and interchange connections to the bridge. Most of this area where the bridge structure, interchange structures, and roadway crosses and consists of land likely to support future park facilities. Land from the Stillwater Municipal Barge Facility property acquired for Alternative D could remain open except for the areas where bridge, roadway, and stormwater pond would be placed. Approximately 2.1 acres of the future parkland would also be used for construction of the park access road and trail at the south end of the property. The park access road would provide access to the park from the frontage road along TH 36/95. The frontage road is accessible from the intersection of TH 95 and the TH 36/95 interchange to the south in Oak Park Heights. Access to the park at the south end of the property is consistent with the 1998 Master Plan (see Section II.B). The trail would provide access to/from the future park for park users and to other trails in the project area. Alternative D would substantially impact the city s plans to fully implement improvements to the property as identified in its 1998 Park Master Plan. Although the plan south of the interchange and bridge could still be implemented, the proposed improvements at the middle and north end of the property could not be implemented (e.g., main park entrance and turnaround, parking, picnic shelter, river edge promenade, information kiosk, paved multi-use trail, Mill Ruins events stage, landscaping, etc.). The bridge overhead, interchange roadways, retaining walls and bridge piers potentially placed on the property would also create a physical impact for recreationalists using the southern portion of the future park access to downtown Stillwater and Lowell Park would not be possible because of the space needed to accommodate the interchange. A trail could potentially connect the southern portion of the park to the area north of the Alternative D interchange by constructing a retaining wall and support system in the St. Croix River to support the trail along the Minnesota shoreline. The approach roadway, retaining walls, and stormwater pond would also result in a modification of the paved multi-use trail and woodland trail system proposed for the park south of the Alternative D bridge. Users of the southern end of the park would experience greater noise impacts with Alternative D than with the No-Build Alternative due to traffic using the Alternative D bridge and TH 36/95 interchange at the bridge abutment. With continued high volumes of traffic on TH 36/95 parallel to the park, noise impacts on the south end of the property would be perpetuated. St. Croix River Crossing Project E-62 Draft Section 4(f) Evaluation
Figure E-7b Alternative C Impacts (SMBFP) (11x17 b/w) St. Croix River Crossing Project E-63 Draft Section 4(f) Evaluation
BACK St. Croix River Crossing Project E-64 Draft Section 4(f) Evaluation
Figure E-7c Alternative D Impacts (SMBFP) (11x17 b/w) St. Croix River Crossing Project E-65 Draft Section 4(f) Evaluation
BACK St. Croix River Crossing Project E-66 Draft Section 4(f) Evaluation
Construction of Alternative D would adversely affect the Hersey & Bean site. These impacts, as well as potential impacts to other historic resources, are being reviewed under Section 106 of the National Historic Preservation Act and are discussed in Chapter 11 of the SDEIS. Alternative D would result in visual impacts for visitors to the future park. The Alternative D bridge and interchange would intrude into views of the river from the Stillwater Municipal Barge Facility property. The Alternative D bridge would also intrude into views of the Lift Bridge from the Stillwater Municipal Barge Facility property. See Chapter 7 of the SDEIS for a discussion of visual impacts. Because the Stillwater Municipal Barge Facility property has not yet been developed as a park, there is the potential to reconsider potential uses and master planning for the parkland remaining under this alternative. Alternative E Construction of Alternative E, similar to Alternative D, would result in construction of TH 36/95 along the western boundary of the Stillwater Municipal Barge Facility property and construction of a bridge and connecting roadway over the north end of the property (Figure E-7d). Bridge piers, pending selection of the Preferred Alternative and resolution of the bridge type analysis, may be placed just outside the park boundary and/or within the park property. Piers for the access ramp from southbound TH 95 to eastbound TH 36 and the Alternative E bridge would also be placed within the park property. Alternative E would cross the Stillwater Municipal Barge Facility property at the northern end of the property, requiring the acquisition of about 6.1 acres of land for right-of-way (see Figure E-7d). About 5.6 acres of this area would be for construction of the roadway at the bridge abutment in this area, roadway for northbound TH 95 to downtown Stillwater and the approach roadway, and ramp abutment for access from southbound TH 95 to eastbound TH 36 at the Alternative E bridge. This also includes area in the middle portion of the park necessary for the construction of a 0.8-acre stormwater pond. About 0.5-acre would be for the Alternative E bridge itself. Most of this area consists of land likely to support future park facilities. Land from the Stillwater Municipal Barge Facility property acquired for Alternative E could remain open except for the areas where bridge and roadway would be placed. Approximately 2.5 acres of the future parkland would also be used for construction of the trail connection at the north end of the property and the park access road and trail at the south end of the property. The trail underneath the Alternative E access ramp and bridge would provide a connection between the Alternative E bridge, Lowell Park, and the Stillwater Municipal Barge Facility property. The Alternative E stormwater pond, located in the middle of the property, would require modification of the paved multi-use trail and woodland trail system proposed for the park in the Master Plan. The park access road at the south end of the property would provide St. Croix River Crossing Project E-67 Draft Section 4(f) Evaluation
access to the park from the frontage road along TH 36/95. The frontage road is accessible from the intersection of TH 95 and the TH 36/95 interchange to the south in Oak Park Heights. The park access road is consistent with the 1998 Master Plan. The trail would provide access to the future park for recreationalists to other trails in the project area. Similar to Alternative D, Alternative E would impact the city s plans to fully implement improvements to the property as identified in its 1998 Park Master Plan. Although the plan at the south end of the property (e.g., picnicking, beach access, fishing pier, parking, etc.) could still be implemented, the proposed improvements at the middle and north end of the property could not be implemented (e.g., main park entrance and turnaround, parking, picnic shelter, river edge promenade, information kiosk, paved multi-use trail, Mill Ruins events stage, landscaping, etc.). Vehicular access to the northern end of the property is not directly impacted by Alternative E, but would require modification from the proposed main park entrance in the Master Plan. The bridge overhead and bridge piers potentially placed on the property would also create a physical impact for recreationalists using the southern portion of the future park to access downtown Stillwater and Lowell Park. Users of the northern end of the park would experience greater noise impacts with Alternative E than with the No-Build Alternative due to traffic using the Alternative E bridge. With continued high volumes of traffic on TH 36/95 parallel to the park, noise impacts on the south end of the property would also be perpetuated. The construction of Alternative E would also result in impacts to the Hersey & Bean site. These impacts, as well as potential impacts to other historic resources, are being reviewed under Section 106 of the National Historic Preservation Act and are discussed in Chapter 11 of the SDEIS. Alternative E would also result in visual impacts for visitors to the future park. The Alternative E bridge would intrude into views of the river from the Stillwater Municipal Barge Facility property. The Alternative E bridge would also intrude into views of the Lift Bridge from the Stillwater Municipal Barge Facility property. Refer to Chapter 7 of the SDEIS for a discussion of visual impacts. Because the Stillwater Municipal Barge Facility property has not yet been developed as a park, there is the potential to reconsider potential uses and master planning for the parkland remaining under this alternative. C. POTENTIAL MITIGATION ITEMS Potential mitigation items for the Build Alternatives are summarized in the introduction to the draft Section 4(f) evaluations and are described in detail in Chapter 14 of the SDEIS. The partnership with the City of Stillwater to develop the Stillwater Municipal Barge Facility property into a park, one of the potential mitigation items, would allow the park plan to be implemented while retaining the recreational use and values originally proposed in the 1998 Park St. Croix River Crossing Project E-68 Draft Section 4(f) Evaluation
Figure E-7d Alternative E Impacts (SMBFP) (11x17 b/w) St. Croix River Crossing Project E-69 Draft Section 4(f) Evaluation
BACK St. Croix River Crossing Project E-70 Draft Section 4(f) Evaluation
Master Plan. The plan could be implemented without modification with Alternative B-1; the plan would require revisions to accommodate the Alternative C alignment at the south end of the park property but a majority of the plan north of the Alternative C bridge could be implemented. The park design as proposed in the 1998 Master Plan could not be implemented under Alternatives D and E. Mitigation for temporary construction impacts associated with development of the property would be provided as described for the Build Alternatives in Section IV. The Terra Terminal building (which is currently not used) could also be removed from the Stillwater Municipal Barge Facility in Stillwater independently of the development of the property as a park facility. This activity could also include removal of construction debris (concrete and asphalt) used for bank stabilization near the structure and the removal of belowwater debris near the adjacent shoreline. While removal of the Terra Terminal building could improve the visual setting of the Stillwater Municipal Barge Facility property and the riverway, it could impact the implementation of the Park Master Plan, which includes the option of converting the Terra Terminal building into a visitor center. The Hersey & Bean site is located at the north end of Stillwater Municipal Barge Facility property. The site is potentially eligible for listing in the National Register of Historic Places. Current studies are underway to determine the boundaries of the site. If partnership with the City of Stillwater to develop the Stillwater Municipal Barge Facility is included with the final mitigation package, potential impacts to the site would be mitigated. Mitigation for the Hersey & Bean site is discussed in Section IV of the Draft Section 4(f) Evaluation for the Stillwater Cultural Landscape District. A final mitigation package, appropriate to the level of impacts, will be presented with the identification of a Preferred Alternative in the Supplemental Final EIS. III. AVOIDANCE ALTERNATIVES The Alternative B-1 river crossing is the only alternative that completely avoids direct construction of the bridge and approach roadways in the Stillwater Municipal Barge Facility property. The construction of the park access road and trail associated with Alternative B-1 (and the other Build Alternatives) would require the use of land for the planned park, but is consistent with the park Master Plan and could be viewed as a benefit to improve park accessibility. The river crossing locations of the other Build Alternatives (Alternatives C, D, and E) proposed in the SDEIS will not avoid impacts to the Stillwater Municipal Barge Facility property. Constraints related to minimizing impacts on the Lower St. Croix National Scenic Riverway, physical limitations between the St. Croix River and Minnesota bluff, and proximity to downtown Stillwater for Alternatives D and E, prevented the possible adjustment of the alignment to avoid the future park while still meeting the project need. Extensive efforts were made with the Build Alternatives to minimize impacts to the extent possible while still meeting the project need (see Section IV). St. Croix River Crossing Project E-71 Draft Section 4(f) Evaluation
IV. MEASURES TO MINIMIZE HARM A number of measures were taken to minimize and mitigate the impacts of the Build Alternatives on the future park. The construction of a park access road and trail at the south end of the property, associated with all Build Alternatives, would provide both vehicular and pedestrian/bicycle access to the south portion of the future parkland. The Alternative C location was selected, in part, so as to cross the property at its southern end, avoiding direct impacts on the main portion of the property to the north. The Alternative D location crosses the property at the middle and northern end, avoiding direct impacts on the portion of the property to the south. The Alternatives D bridge, interchange, and associated retaining walls do not provide for adequate space to provide trail connections from downtown Stillwater, under the Alternative D bridge, to the south end of the property. A trail connection to the southern portion of the property around the interchange near Stillwater could be constructed, but would require construction of a retaining wall and support system in the St. Croix River to support the trail. Retaining walls between the TH 36/95 roadway and the Stillwater Municipal Barge Facility property minimize the amount of fill material and physical space that would be needed to support the expanded roadway at the middle section of the future park property. The Alternative E location crosses the property at the northern end, also avoiding direct impacts on the portion of the property to the south. Although the Alternatives E bridge, approach roadways, and intersection require a substantial amount of property from the middle and north end of the parkland, these impacts are mitigated by providing trail connections from downtown Stillwater, under the Alternative E bridge, to the south end of the property. Retaining walls between the TH 36/95 roadway and the Stillwater Municipal Barge Facility property also minimize the amount of fill material and physical space that would be needed to support the expanded roadway. Although land would be acquired from the Stillwater Municipal Barge Facility property for the construction of stormwater ponds, the ponds would treat runoff from TH 36/95 prior to discharge in the St. Croix River, itself a Section 4(f) resource. See Chapter 10 of the SDEIS for a discussion of water quality, runoff, and stormwater ponding for Alternatives D and E. In addition, other design considerations related to the bridge style, pending resolution of the bridge type analysis, could be incorporated to minimize impacts to the parkland. The bridge span length could be maximized in order to minimize the number of piers placed in the river and in the Stillwater Municipal Barge Facility. Retaining walls associated with the bridge piers could be constructed in the park, further reducing the physical space used to support the bridge piers. Potential mitigation items for Alternatives B-1 and C include partnership with the City of Stillwater in the development of the Stillwater Municipal Barge Facility property as a park and support for redesign of affected parks. With Alternative B-1, the 1998 Park Master Plan could be implemented as described in the plan. With Alternative C, a majority of the property could be St. Croix River Crossing Project E-72 Draft Section 4(f) Evaluation
developed as planned, with revisions at the south end of the property to account for the Alternative C river crossing. A majority of the site is utilized by Alternatives D and E. As such, the site could not be developed as identified in the Park Master Plan. Thus, a potential mitigation item, applicable to Alternatives D and E, would include providing funds to local governments for redesign of park master plans. Because the property has not yet been developed as a park, there is also the potential to coordinate the Preferred Alternative bridge and final park design to further mitigate the impacts on the Section 4(f) resource. Mitigation would be provided for temporary construction impacts on the Stillwater Municipal Barge Facility. Temporary construction impacts could include erosion/sedimentation, occupancy for construction staging areas, dust, and noise impacts associated with construction of any of the Build Alternatives. Temporary erosion and sedimentation control measures and Best Management Practices (BMPs) developed by the Minnesota Pollution Control Agency (MPCA) would be followed to minimize these impacts. Temporary impacts on air quality from dust would be mitigated through standard construction practices, including wetting of exposed soils, limiting vehicle operation on unpaved surfaces, and limiting the extent and duration of exposed areas. Temporary noise impacts would be minimized as described in Chapter 12 of the SDEIS. A construction management plan (e.g., staging of activities) would be developed as part of the Preferred Alternative and would better define the duration of the various construction activities. VII. COORDINATION Extensive agency coordination has occurred throughout the project history and SDEIS process, as described in the Introduction to the Draft Section 4(f) Evaluations. Coordination related to discussion of impacts and proposed mitigation items has occurred with federal, state, and local government agencies and non-governmental groups as part of the Stakeholder Resolution Process. The agencies and non-governmental groups also provided input into the development of the Build Alternatives as described in Chapters 3 and 15 of the SDEIS. Further coordination will continue with the City of Stillwater as owners of the property, and agencies that regulate and/or issue permits related to development of the property. St. Croix River Crossing Project E-73 Draft Section 4(f) Evaluation