Draft Mississippi River Corridor Critical Area Plan City of Minneapolis May 24, 2018 1 Table of Contents List of figures Chapter 1 ‐ Introduction Chapter 2 ‐ Districts Chapter 3 ‐ Primary Conservation Areas Chapter 4 ‐ Public River View Corridors Chapter 5 ‐ Restoration Priorities Chapter 6 ‐ Open Space and Recreational Facilities Chapter 7 ‐ Transportation and Public Utilities Chapter 8 ‐ Surface Water Uses and Water Oriented Uses Chapter 9 ‐ Key Issues and Opportunities Chapter 10 ‐ Policies Chapter 11 ‐ Implementation Actions Appendix A – Minnesota Rules, Chapter 6106 (MRCCA Rules) Appendix B – MRCCA Native Plant Communities 2 List of Figures Figure 1‐1: MRCCA Boundary in Minneapolis. Figure 2‐1: Upper River MRCCA Districts. Figure 2‐2: Central River MRCCA Districts. Figure 2‐3: Lower Gorge MRCCA Districts. Figure 2‐4: General MRCCA District Height and Setback Requirements. Figure 2‐5: Upper River ‐ Minneapolis Built For Guidance over MRCCA Districts. Figure 2‐6: Central River ‐ Minneapolis Built For Guidance over MRCCA Districts. Figure 2‐7: Lower Gorge ‐ Minneapolis Built For Guidance over MRCCA Districts. Figure 3‐1: Shore Impact Zone. Figure 3‐2: Upper River – Shore Impact Zone. Figure 3‐3: Central River – Shore Impact Zone. Figure 3‐4: Lower Gorge – Shore Impact Zone. Figure 3‐5: Upper River – Wetlands and Floodplain. Figure 3‐6: Central River – Wetlands and Floodplain. Figure 3‐7: Lower Gorge – Wetlands and Floodplain. Figure 3‐9: Upper River – Natural Drainage Ways. Figure 3‐10: Central River – Natural Drainage Ways. Figure 3‐11: Lower Gorge – Natural Drainage Ways. Figure 3‐12: Bluffs and Bluff Impact Zones. Figure 3‐13: Upper River – Bluff Impact Zone. Figure 3‐14: Central River – Bluff Impact Zone. Figure 3‐15: Lower Gorge – Bluff Impact Zone. Figure 3‐16: Upper River – Native Plant Communities and Significant Existing Vegetative Stands. Figure 3‐17: Central River – Native Plant Communities and Significant Existing Vegetative Stands. 3 Figure 3‐18: Lower Gorge – Native Plant Communities and Significant Existing Vegetative Stands. Figure 3‐19: Upper River – Historic Districts and Landmarks. Figure 3‐20: Central River – Historic Districts and Landmarks. Figure 3‐21: Lower Gorge – Historic Districts and Landmarks. Figure 4‐1: Upper River – Public River Corridor Views. Figure 4‐2: Central River – Public River Corridor Views. Figure 4‐3: Lower Gorge – Public River Corridor Views. Figure 4‐4: MRCCA Public River Corridor Views. Figure 5‐1: Upper River – Restoration Priorities. Figure 5‐2: Central River – Restoration Priorities. Figure 5‐3: Lower Gorge – Restoration Priorities. Figure 6‐1: Upper River – Existing Open Space and Recreational Facilities. Figure 6‐2: Central River – Existing Open Space and Recreational Facilities. Figure 6‐3: Lower Gorge – Existing Open Space and Recreational Facilities. Figure 6‐4: Above the Falls Regional Park Master Plan Proposed Park Boundary. Figure 6‐5: Central Mississippi Riverfront Regional Park Master Plan Study Area. Figure 7‐1: Upper River ‐ Existing Interstate, Roads, and Streets. Figure 7‐2: Central River ‐ Existing Interstate, Roads, and Streets. Figure 7‐3: Lower Gorge‐ Existing Interstate, Roads, and Streets. Figure 7‐4: Upper River‐ Future Planned Roadways. Figure 7‐5: Upper River‐ Existing and Planned Bike Facilities. Figure 7‐6: Central River – Existing and Planned Bike Facilities. Figure 7‐7: Lower Gorge – Existing and Planned Bike Facilities. Figure 7‐8: Upper River‐ Existing and Planned Transit Facilities. Figure 7‐9: Central River‐ Existing and Planned Transit Facilities. 4 Figure 7‐10: Lower Gorge‐ Existing and Planned Transit Facilities. Figure 7‐11: Upper River ‐ Existing Utilities. Figure 7‐12: Central River ‐ Existing Utilities. Figure 7‐13: Upper River ‐ Minneapolis 2040 Production and Distribution Guided Land. Figure 7‐14: Central River ‐ Minneapolis 2040 Production and Distribution Guided Land. Figure 9‐1: Upper Harbor Terminal viewed from the north. 5 Chapter 1 ‐ Introduction Corridor Location and History The Mississippi River Corridor Critical Area (MRCCA) extends 72‐miles through the Twin Cities Metropolitan Area, from the townships of Dayton and Ramsey in Hennepin and Anoka counties downstream to just south of Hastings in Dakota County. Governor Wendell Anderson designated the MRCCA in 1976 by Executive Order 130. It was renewed by Governor Al Quie in 1979 by Executive Order 79‐19. See Figure 1‐1 for the MRCCA boundaries within the City of Minneapolis. Figure 1‐1: MRCCA Boundary in Minneapolis. 6 The MRCCA contains many significant natural and cultural resources, including: scenic views, water, navigational capabilities, geology and soils, vegetation, minerals, flora and fauna, cultural and historic resources and land and water based recreational resources. The MRCCA is home to a full range of residential neighborhoods and parks, as well as river‐related commerce, industry, and transportation. Though the river corridor has been extensively developed, many intact and remnant natural areas remain, including bluffs, islands, floodplains, wetlands, riparian zones, and native aquatic and terrestrial flora and fauna. In 1988, Congress (Public Law 100‐696) established the Mississippi National River and Recreation Area (MNRRA) as a unit of the National Park Service 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. The MNRRA shares the same boundaries as the MRCCA. In 1995, a Final Comprehensive Management Plan for the MNRRA was approved by the Secretary of the Interior. This plan lays out a policy‐level framework for management of the river corridor. It also determined that the National Park Service would not acquire significant land holdings or establish land use regulations for the MNRRA, but would instead rely on state and local administration of Executive Order 79‐19 to protect the resources. The MRCCA is governed by special land planning requirements and land development regulations. These regulations, which are implemented through local MRCCA plans and ordinances, protect and preserve the natural, scenic, recreational, and transportation resources of this section of the Mississippi River. In response to citizens and interest groups raising concerns around the adequacy of the MRCCA regulations, the Legislature directed the Minnesota Department of Natural Resources (DNR) to establish rules for the MRCCA in 2009 and 2013. Minnesota Rules, Chapter 6106, became effective on January 4, 2017, and replace Executive Order 79‐19, which previously governed land use in the MRCCA. They provide the land planning and regulatory framework that protects the MRCCA’s resources. Public Input Process Public input was gathered through the community engagement for the city’s comprehensive plan update (Minneapolis 2040) during 2016 and 2017. This engagement covered many topics relevant to the MRCCA plan including land use, open space, and environmental issues. In addition, many policy recommendations adopted small area plans, which all had significant community engagement. Finally, the document was included with the comprehensive plan update document during the public review and comment period in March of 2018. 7 Implementing the 2006 MRCCA Plan Several major projects and activities have occurred in the MRCCA that implemented the goals and policies of the 2006 MRCCA plan: Between 2006 and the present, several developments were constructed in the MRCCA, all of which were reviewed for compliance with the MRCCA plan. Between 2006 and the present, the Minneapolis Park and Recreation Board (MPRB) acquired several parcels, implemented park and trail improvements, and undertook various planning processes. These include, but are not limited to, park and trail improvements on the west bank from Plymouth Avenue North to 22nd Avenue North, pollution remediation at Gluek Park, development of Water Power Park, construction of Sheridan Memorial Park, acquisition and preliminary construction of Scherer Park and Hall’s Island, acquisition of several parcels on the upper river, and planning for the future Water Works Park. In 2008, the I‐35W Bridge was replaced after the previous bridge collapsed. In 2009, the Xcel Riverside Plant was converted from coal to natural gas reducing emissions in the area and removing the storage of coal at the site. In 2012, the Lowry Avenue Bridge, which includes new overlooks and adjacent improvements, was completed. In 2012, the Mississippi River Watershed Management Organization offices, which includes a stormwater park and learning center, opened on the banks of the river. In 2012, the St. Anthony Falls Historic District Guidelines were updated to protect the integrity and character of the district. In 2014, the Water Resources Reform and Development Act was passed closing the Upper St. Anthony Falls Lock to navigation in June of 2015. Because of this closure there is no more commercial barge traffic on the Mississippi in Minneapolis. This allows for the Upper Harbor Terminal to convert from heavy industry to mixed‐use and park land (planning process underway). In 2016, the C.A. Smith Lumber District was established on the west bank in the Camden Neighborhood to protect