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Healthy-Communities-Initiative-–-ULI-MN-TAP-Report.Pdf EXECUTIVE SUMMARY 2 MNDOT TAP AND FREEWAY LID BACKGROUND 4 Technical Assistance Panel Background 4 MnDOT’s “Rethinking I-94” Project 5 TAP Timeline 6 Lid Case Studies 7 Lid Typologies 10 HEALTHY COMMUNITIES INITIATIVE 14 One Corridor, One Vision 14 Principles for the Healthy Communities Initiative 15 Recommendations 15 PANEL RESPONSE TO MNDOT QUESTIONS 21 Lid Overview Questions 21 Cost Questions 23 I-35W AT WASHINGTON AVENUE STUDY AREA 27 Study Area Background 27 Site Visit and Interviews 28 Panel Findings and Analysis 29 HISTORIC RONDO AVENUE STUDY AREA 31 Study Area Background 31 Site Visit and Interviews 32 Panel Findings and Analysis 33 FARVIEW PARK STUDY AREA 35 Study Area Background 35 Site Visit and Interviews 36 Panel Findings and Analysis 37 LIGHTNING ROUND SITES 39 Arts District / Nicollet Avenue 39 Elliot Park 40 University of Minnesota Gateway 41 Midway – Saint Paul 42 State Capitol – Saint Paul 43 CONCLUSION 44 ULI MINNESOTA 45 PANELIST AND CONSULTANT BIOS 46 APPENDICES 49 minnesota.uli.org 1 Executive Summary ULI MN MnDOT TAP Findings In preparation for reconstruction of freeway segments that are nearing the end of their useful lives, the Minnesota Department of Transportation (MnDOT), under the leadership of Commissioner Charlie Zelle, approached ULI Minnesota (ULI MN) with a 21st century strategy for how interstates could be rebuilt to restore connections in adjacent neighborhoods and foster new growth opportunities on MnDOT right of way. This strategy involves constructing “lids” above the roadway and preparing freeway embankments to support development. The focus on how freeways impact adjacent neighborhoods is endorsed by Secretary Anthony Foxx of the U.S. Department of Transportation (USDOT) who has made restoring communities a centerpiece of his administration in recognition of the damage freeway construction caused to communities when they were first built in the 1960s. MnDOT invited ULI MN to conduct a Technical Assistance Panel (TAP) to analyze whether private sector investment would generate sufficient revenue to pay for building “lids” above the roadway and other improvements and what steps MnDOT might take to make these projects a reality. ULI MN is uniquely qualified for this task through its interdisciplinary membership of professionals working in real estate, law, architecture and finance who volunteer their time and talent to help solve complex real estate and land use issues. The TAP was designed to consider the I-94 corridor from Saint Paul to Minneapolis and study three specific areas–I-35W/Minneapolis Central Business District, historic Rondo Avenue in Saint Paul, and Farview Park in North Minneapolis. It also included a “lightning round” for high level observations of five other sites, and a series of questions and goals developed by MnDOT and ULI MN. MNDOT AND ULI MN GOALS 1. Reconnecting communities that were divided and harmed by freeway construction during the system’s initial buildout in the 1960s. 2. Providing economic opportunity for all by generating investment and cultivating new opportunities at lid locations and along MnDOT right of way. 3. Building for future growth by modernizing the region’s transportation network and making new land available for development. ULI MN convened a panel of experts to engage in an active three-day TAP which included site visits, interviews with community leaders, and analysis of economic data and case studies of successful freeway lid projects to develop recommendations and guidelines for moving forward. Early on day two, the panel identified a critical conceptual breakthrough: the corridor should be considered as a whole under a single banner, not separate lid projects, and implementation should be part of a rebranded vision called “the Healthy Communities Initiative.” minnesota.uli.org 2 Healthy Communities Initiative: Improve the Physical, Environmental, Economic, and Social Health of Communities PRINCIPLES: DO THE RIGHT THING AND DO IT RIGHT 1. Connect and reconnect communities. 2. Protect and enhance our environmental health. 3. Catalyze economic and housing opportunities for all. 4. Value aesthetics. 5. Strengthen the state’s economy. RECOMMENDATIONS TO MNDOT IMMEDIATE NEXT STEP: To maintain momentum, begin the Healthy Communities Initiative within the next three months with the establishment of a taskforce of community, public, and private sector leaders to evaluate and act on the following recommendations. Form a quasi-governmental public-private partnership led by a small team of leaders to oversee a corridor-wide strategy to restore and enhance physical, environmental, economic and social health. Form a 501(c)(3) nonprofit organization and identify a fundraising champion to raise money for recreational and cultural amenities and to fund maintenance and operations through an endowment. Put an experienced, professional leader in charge of managing and delivering the Initiative as a whole and set an aggressive timeline. Make freeway bridge locations development-ready when rebuilt and do as much as possible now so that neighborhoods and the development community can seize opportunities as they arise. Conduct a corridor-wide parking and transportation study to evaluate district parking at lids and how transit at lids can provide access to jobs. Develop market-based conceptual plans at Rondo and I-35W/Washington Ave and pursue land use consensus at Farview Park. TAPs or similar analyses can prepare these areas for lid projects when the time comes. At Farview Park, the City of Minneapolis, the Minneapolis Park and Recreation Board, and the neighborhood need a shared vision on the future of the industrial land along the river. Mandate a mechanism to ensure the inclusion of affordable housing to deliver a full range of housing choices, including a range of affordability throughout the corridor. Use the corridor as a showcase for art, architecture, design, and innovative engineering and technology best practices by engaging artists, architects and designers who will want opportunities to showcase their work. Look to the future of transportation and study emerging best practices. Practice effective community engagement and support cultural connections by working with community leaders and valuing public art, greenspace, and great design throughout the corridor. MnDOT and the USDOT have demonstrated foresight and leadership by beginning to rethink how freeways move through the communities they serve. The ULI MN TAP panelists developed “the Healthy Communities Initiative,” an ambitious vision with significant potential to deliver on that idea. Achieving it will require strong leadership among MnDOT, USDOT and other local committed and dedicated community, public, and private sector leaders. Let’s do the right thing, do it right and start now. For more information, please contact Caren Dewar or David Baur with ULI MN. minnesota.uli.org 3 MnDOT TAP and Freeway Lid Background Technical Assistance Panel Background The Urban Land Institute Minnesota (ULI MN) conducts Technical Assistance Panels (TAPs) at the request of a community or public agency to provide an unbiased, interdisciplinary panel of volunteer real estate professionals who address a specific project, development or policy issue. The workshop is preceded by analysis of background information provided by the sponsor, planning sessions, community interviews, and site tours. The panel’s findings and recommendations are documented in a written report. Panelists are ULI MN members and leaders from across the real estate and land use industries who volunteer their time and talent because of a commitment to making positive economic, environmental and social impacts in our communities. The Minnesota Department of Transportation (MnDOT) approached ULI MN to analyze the development and investment opportunities associated with building “freeway caps” or “lids” at key locations on MnDOT right of way. MnDOT wanted a deeper understanding of how attractive freeway lids and their surrounding areas would be to private developers and whether the investment they would attract would generate sufficient revenue to pay for them. MnDOT and ULI MN identified three goals for what lidding projects could achieve, identified at right. A lid is a structure built over a freeway trench to connect areas on either side of the trench that would otherwise be divided by the freeway and/or to support other structures built above the roadbed and along freeway embankments. Though the terms “lid,” “freeway cap,” and “land bridge” are used more or less interchangeably, MnDOT has most frequently used “lid.” This report follows that convention. Should readers seek more information on this concept, the other terms yield additional results when searching online. The panel consisted of leaders from a diverse array of professions in the Minneapolis–Saint Paul market including real estate attorneys, architects, developers, and artists. With assistance from Jones Lang LaSalle (JLL), ULI Minnesota was also able to enlist two panelists, Hugh Murphy and Bill Lively, who have experience with prominent lidding projects including Millennium Park in Chicago and Klyde Warren Park in Dallas. The Panel ULI Minnesota Staff Pat Mascia, Briggs & Morgan TAP Co-Chair Caren Dewar, Executive Director Ann Marie Woessner-Collins, JLL TAP Co-Chair Cathy Bennett, Housing Initiative Sarah Harris, University of Minnesota Foundation Real Estate Advisors Gordon Hughes, Advisory Services Seitu Jones, Artist David Baur, Director Bill Lively, Retired, National
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