linking light rail transit to the city: six neighborhood ...linking light rail transit to the city:...

Linking Light Rail Transit to the City:Six Neighborhood Station Districts

2000-01FinalReport

Technical Report Documentation Page

1. Report No.

2.

3. Recipient’s Accession No.

MN/RC – 2000-01

4. Title and Subtitle

5. Report Date August 1999 6.

LINKING LIGHT RAIL TRANSIT TO THE CITY: SIX NEIGHBORHOOD STATION DISTRICTS

7. Author(s)

8. Performing Organization Report No.

Mary Vogel Sishir Change James Pettinari Aaron Mikonowicz Lance Neckar Garneth Peterson

9. Performing Organization Name and Address

10. Project/Task/Work Unit No. 11. Contract (C) or Grant (G) No.

University of Minnesota Department of Landscape Architecture 110 Arch, 89 Church Street, S.E. Minneapolis, MN 55455

c) 74708 wo) 100

12. Sponsoring Organization Name and Address

13. Type of Report and Period Covered Final Report 1999 14. Sponsoring Agency Code

Minnesota Department of Transportation 395 John Ireland Boulevard St. Paul, MN 55155

15. Supplementary Notes 16. Abstract (Limit: 200 words) In this project, landscape architects, architects, and urban design professionals explored land use opportunities and challenges in the six neighborhood light rail stations of South Minneapolis’ Hiawatha Corridor. They studied the Cedar Riverside, Franklin Avenue, Lake Street, Thirty-Eighth, Forty-Sixth, and Minnehaha station areas, analyzing land use patterns, pedestrian and vehicular routes, current zoning, destinations, and potential development sites. They gathered comments from residents in public meetings. Based on the analysis and public feedback, the researchers identified potential development scenarios for each station area. This report summarizes those scenarios.

17. Document Analysis/Descriptors

18. Availability Statement

Transit oriented development LRT station area planning Land use

No restrictions. Document available from: National Technical Information Services, Springfield, Virginia 22161

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126

LINKING LIGHT RAIL TRANSIT TO THE CITY: SIX NEIGHBORHOOD STATION DISTRICTS Final Report Prepared By Mary Vogel, Senior Research Fellow Department of Landscape Architecture University of Minnesota James Pettinari, Professor Department of Architecture University of Oregon Senior Research Fellow Department of Landscape Architecture University of Minnesota Lance Neckar, Professor Department of Landscape Architecture University of Minnesota Sishir Chang, Research Fellow Department of Landscape Architecture University of Minnesota Aaron Mikonowicz, Research Fellow Department of Landscape Architecture University of Minnesota Garneth Peterson, Department of Landscape Architecture University of Minnesota August 1999 Published by the Minnesota Department of Transportation Office of Research Administration 200 Ford Building, Mail Stop 330 Saint Paul, Minnesota 55155 This report represents the results of research conducted by the authors and does not necessarily reflect the views or policy of the Center for Transportation Studies or the Minnesota Department of Transportation. This report does not contain a standard nor specifies a technique.

THE UNIVERSITY OF MINNESOTA RESEARCH TEAM Principal Investigator, Mary Vogel, Senior Research Fellow, Department of Landscape Architecture, University of Minnesota Co-Principal Investigator, James Pettinari, Professor, Department of Architecture, University of Oregon and Senior Research Fellow, Department of Landscape Architecture, University of Minnesota Co- Principal Investigator Lance Neckar, Professor, Department of Landscape Architecture, University of Minnesota Staff Researcher, Sishir Chang, Research Fellow, and Garneth Peterson, Department of Landscape Architecture, University of Minnesota Staff Support, Aaron Mikonowicz, Research Fellow, Department of Landscape Architecture, University of Minnesota

ACKNOWLEDGMENTS The authors would like to acknowledge the help of the Hiawatha Corridor Land Use Committee. Chair: Craig Rapp, Community Development, Metropolitan Council Members: _ Geoff Batzel, Planning Department, City of Minneapolis _ Larry Blackstad, Hennepin County Community Works _ John Bochek, Veterans Administration Medical Center _ Kurt Chatfield, Dakota County _ Caren Dewar, Midtown Community Works _ Mark Garner, Minneapolis Community Development Agency _ Clint Hewitt, University of Minnesota _ Judy Hollander, Community Development, Metropolitan Council _ John Kari, Livable Communities, Metropolitan Council _ Carol Lezotte, Hennepin County Works _ Jennifer Lovaasen, Community Development, Metropolitan Council _ Karen Lyons, Transportation, Metropolitan Council _ Monique MacKenzie, Planning Department, City of Minneapolis _ Jim Moore, Minneapolis Community Development Agency _ Bob Morgan, Department of Public Works, City of Minneapolis _ Steve Morris, Metro Transit, Metropolitan Council _ Glenn Olson, Downtown Minneapolis Transit Management Organization _ Mike Schadauer, Office of Rail Transit, Minnesota Department of Transportation _ Katie Walker, Transit & Environmental Services, Hennepin County _ Sandy Welsh, Minneapolis Park Board

TABLE OF CONTENTS Executive Summary Chapter I: Introduction..........................................................................................................1-1

Background.....................................................................................................................1-1 Study Scope....................................................................................................................1-2 Methodology....................................................................................................................1-2 Citizen Comments..........................................................................................................1-3 Principles ........................................................................................................................1-4 Design Guidelines..........................................................................................................1-5

Chapter II: Cedar Riverside Station Area..........................................................................2-1

Overview & Major Issues ...............................................................................................2-2 Citizen Comments..........................................................................................................2-4 Land Use.........................................................................................................................2-6 Pedestrian Access.........................................................................................................2-8 Destinations & Movement .......................................................................................... 2-10 Zoning ........................................................................................................................... 2-12 Development Opportunities........................................................................................ 2-14 Potential Development Scenario............................................................................... 2-16

Chapter III: Franklin Avenue Station Area..........................................................................3-1

Overview & Major Issues ...............................................................................................3-2 Citizen Comments..........................................................................................................3-4 Land Use.........................................................................................................................3-6 Pedestrian Access.........................................................................................................3-8 Destinations and Movement....................................................................................... 3-10 Zoning ........................................................................................................................... 3-12 Development Opportunities........................................................................................ 3-14 Potential Development Scenario I............................................................................. 3-16 Potential Development Scenario II ............................................................................ 3-18 Potential Development Scenario III............................................................................ 3-20

Chapter IV: Lake Street Station Area ................................................................................4-1

Overview & Major Issues ...............................................................................................4-2 Citizen Comments..........................................................................................................4-4 Land Use.........................................................................................................................4-6 Pedestrian Access.........................................................................................................4-8 Destinations and Movement....................................................................................... 4-10 Zoning ........................................................................................................................... 4-12 Development Opportunities........................................................................................ 4-14 Potential Development Scenario I............................................................................. 4-16 Potential Development Scenario II ............................................................................ 4-18 Potential Development Scenario II ............................................................................ 4-20

Chapter V: Thirty Eighth Street Station Area.....................................................................5-1

Overview & Major Issues ...............................................................................................5-2 Citizen Comments..........................................................................................................5-4 Land Use.........................................................................................................................5-6 Pedestrian Access.........................................................................................................5-8 Destinations and Movement....................................................................................... 5-10 Zoning ........................................................................................................................... 5-12 Development Opportunities........................................................................................ 5-16 Potential Development Scenario............................................................................... 5-18

Chapter VI: Forty Sixth Street Station Area.......................................................................6-1

Overview & Major Issues ...............................................................................................6-2 Citizen Comments..........................................................................................................6-4 Land Use.........................................................................................................................6-6 Pedestrian Access.........................................................................................................6-8 Destinations and Movement....................................................................................... 6-10 Zoning ........................................................................................................................... 6-12 Development Opportunities........................................................................................ 6-14 Potential Development Scenario I............................................................................. 6-16 Potential Development Scenario II ............................................................................ 6-18

Chapter VII: Minnehaha Park Station Area........................................................................7-1

Overview & Major Issues ...............................................................................................7-2 Citizen Comments..........................................................................................................7-4 Land Use.........................................................................................................................7-6 Pedestrian Access.........................................................................................................7-8 Destinations and Movement....................................................................................... 7-10 Zoning ........................................................................................................................... 7-12 Development Opportunities........................................................................................ 7-14 Potential Development Scenario............................................................................... 7-16

LINKING LIGHT RAIL TRANSIT TO THE CITY EXECUTIVE SUMMARY This project used the case study method of the landscape architecture, architecture and urban design professions to explore the land use opportunities and challenges in the six neighborhood light rail stations in Hiawatha Corridor of south Minneapolis. The sites studied were the Cedar Riverside, Franklin Avenue, Lake Street, Thirty-Eighth, Forty Sixth and Minnehaha station areas. The work is presented in a graphic and written form. Efforts were focused on the area in a half mile radius of each station location. Land use patterns, pedestrian and vehicular routes, current zoning, destinations, and potential development sites were analyzed. Citizen comments were solicited in public meetings. Based on the analysis and the citizen imput, potential development scenarios were developed for each station area. The following observations are presented in summary of the work. Cedar Riverside Station Area has the potential to be a busy place due to the institutions in the area and the high residential density; however, efforts should be made to make the station less isolated and more connected to Cedar Avenue. Developing the land adjacent to the station and creating a pedestrian connection to Cedar are recommended. Franklin Avenue Station Area has important revitalization possibilities, but a significant public investment in the public realm should be made to connect the Seward and Phillips neighborhoods to the station and spur economic development in this blighted and underutilized station area. Care should be made to structure bus stops and time traffic signals to aid pedestrian access to the station. Efforts should be made to locate uses that will increase personal safety close to the station. Lake Street Station Area has great potential for an urban village development scenario with dense development that provides employment, shopping and expands the type of housing available within the city. The largest obstacle to development is the Hiawatha overpass which separates the station from the area east of it. As currently planned, the pedestrian environment under the overpass is formidable. Thirty-Eighth Street Station Area provides an opportunity of increasing employment opportunities east of Hiawatha; however, the Hiawatha pedestrian crossing at 38th needs to be designed to make it easier and safer to reach the station. The development west of the station should buffer the neighborhood from the station and the bus hub, and preserve the neighborhood gathering place adjacent to them. The triangle of land south of 38th should be developed as a neighborhood green space. By using the rail corridor, Forty-Sixth Street Station Area offers an opportunity to create an urban village that connects the station area to Minnehaha Park by means of a greenway. East of Hiawatha there are opportunities to increase employment and retail opportunities in this area while providing dense housing on the greenway. West of Hiawatha there are opportunities to buffer the neighborhood from the bus hub with new housing that serves as a transition to the existing single family housing in the neighborhood. South of 48th there is an opportunity for a child care center or attached housing that overlooks the creek. As at 38th, the Hiawatha crossing is problematic and needs to designed to accommodate pedestrians more safely. Minnehaha Park Station Area will provide an entrance to the park and to the neighborhood. Pedestrian routes from the neighborhood should connect to the path system in the park. Small scale commercial and residential development should be encouraged in the station area. Crossing Hiawatha is an issue here also.

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CHAPTER II: CEDAR-RIVERSIDE STATION

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CEDAR-RIVERSIDE STATIONOVERVIEW AND MAJOR ISSUES

OverviewThe Cedar-Riverside station is perhaps the onlyLRT station that will serve a high densityneighborhood at the outset. While plans call forhigher density development to support transit inmost other station locations, the Cedar-Riversidestation is at the foot of the Cedars and RiversidePlaza high-rise housing developments. Built inthe late 1960s, the towers were the beginning ofa new town redevelopment project that plannedto remake this eclectic neighborhood. While notall the development envisioned in the plan wascompleted, the towers have remained as avisible symbol of the city’s attempt to renew anaging inner city neighborhood.

Cedar-Riverside has a long history as a close-inurban neighborhood and one that has oftenhoused new immigrants to the city. In the latenineteenth century, Cedar-Riverside was thecenter of Scandinavian population and CedarAvenue had Scandinavian-oriented businesses. In the second half of the twentieth centuryinstitutional uses have dominated theneighborhood with Augsburg College, the WestBank campus of the University of Minnesota,and the Fairview and St. Mary's Hospitalcomplexes. Surrounded by freeways and theMississippi River, the Cedar-Riversideneighborhood is a distinctly urban setting in themidst of the city.

The LRT station for this neighborhood is plannedat the far southwest corner, in the shadow of the5th Street exit ramp from I-94 and removedfrom Cedar Avenue. Accessibility to the stationand creating comfortable pedestrian paths willbe critical issues for this station. Pedestrianways will need to connect the station with localtransit on Cedar or other locations, which are two blocks at a minimum from the station.

There is some potential for redevelopmentaround the station to provide small retail or

office uses; these uses would provide livelyactivity and "eyes on the street" in an area thatnow is somewhat isolated from the busyness ofCedar and Riverside.

Major IssuesCC Creating a station that feels safe and

welcoming in a somewhat isolated area,C Encouraging small-scale redevelopment in

the station area to provide lively activity andgoods and services needed by LRT riders,

C Establishing a "sense of place" for thisstation as a way of identifying it within theneighborhood as well as on the LRT line,

C Developing comfortable pedestrian paths onthe Cedar Avenue and 19th Avenue bridgesfrom Seven Corners,

C Identifying and marking paths alongRiverside, Sixth and Seventh east of Cedarto guide pedestrians to the Cedar-Riversidestation,

C Enhancing crosswalk identification andsignal timing across Cedar and Riverside tocall attention to pedestrians and allow forsafe crossings,

C Clearly marking and identifying paths fromCedar through the Cedar and Riversidehousing to the LRT station.

C Consider creating a gateway plaza at 16thAvenue, and

C Developing a pedestrian way along the pathof 7th Street from Cedar to the station toprovide access and offer greater visibility forthe station.

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Existing conditions ½ mile radius from proposed station

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CEDAR-RIVERSIDE STATIONCITIZEN COMMENTS

Those citizen comments noted here were question revealed a variety of thoughtfulfocused on the Cedar-Riverside station. responses about station area planning:

Most Valued Characteristics

Citizens were asked what things they mostvalued about the Cedar-Riverside neighborhood. Two answers predominated:C Theater and entertainment, andC Diversity of people, businesses and

institutions.

When asked to comment, respondentsrepeatedly noted diversity:C "ethnic and social mix,"C "active feel of neighborhood," andC "neighborhood vitality."

The neighborhood amenities also spelled outwere:C A respondent wrote "cultural opportunity,

e.g. Wilson Library, Rarig Hall, MannTheater" and

C Another person stated "parks, shoppingculture, ability to walk where I need to go."

Hindrances to Convenient Transit Access

The primary concern for respondents here wasthe station's location at the edge of theneighborhood and its safety. One personsummed it up by saying that the station locationwas "more distant than I would like from whereI live, very, very poor public lighting, poor streetmaintenance."

Issues for Focus in the Planning Process

The respondents from the Cedar-Riverside areawere quite focused on their primary issues. Theyhighlighted one concern in planning for thestation: that stations be placed in locations nearthe density of people and businesses. This

C "Have many stations rather than few. System must be close to people and can't beat edge of neighborhood. Stations should beclose to where people want to be, notisolated"and

C "Station appears to be the back door to thecity, as observed when driving to/fromairport. I think we need to put more peopleand positive activity along the route."

Another commenter focused on station design,suggesting that they be "attractive, well-lighted,safe; stations should reflect the 'pedigree' orhistory of their particular locale."

Proposed Type of Near StationDevelopment

Respondents to this question highlighted some ofthe same issues raised earlier. The responsessuggested:C wonderful well lighted pedestrian

connections, tree, and landscaped areas,C welcoming atmosphere with signage,C personal safety needed to be addressed, andC service-oriented retail at the station.

Additional comments elaborated on thesesuggestions. One person wrote that the areashould include "cafes, newspaper stands, othersmall businesses; there needs to be a drop-offarea and walking access to the University ofMinnesota and Augsburg College."

Another commenter wrote that the area shouldhave a "bazaar feeling reflecting the widevariety of ethnic groups" in the neighborhood. One other person cautioned that "developmentshould occur as the need is recognized. Avoidover development which could hurt theneighborhood feel."

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CEDAR-RIVERSIDE STATIONLAND USE

Land uses in the Cedar-Riverside area are acombination of residential, commercial andinstitutional. These uses are located north andeast of the proposed station area, locations fromwhich most riders are anticipated. The servicearea for this station includes a much larger area,but neighborhoods west and south are separatedfrom the station by freeways and are less likelyto provide large numbers of riders or experienceany impact from the station.

The residential areas, the health care institutionsand the institutions of higher education areanticipated to provide the largest numbers ofriders. The concentration of the high-riseCedars and Riverside housing, immediatelyadjacent to the station, will offer a large ridershipbase. Other residential uses are east of Cedarin an area with single-family and multi-familyuses.

A large portion of the land in this service area ismade up of institutional uses. Located east ofCedar are the University of Minnesota WestBank campus and Augsburg College. Farthereast are the St. Mary's and Fairview Hospitalcomplexes, out of the service area, but perhapsstill close enough for some ridership. LRTaccess should be considered in planning newdevelopment.

Commercial uses in the area line Cedar Avenuenorth to Washington and go west on Washingtoninto downtown Minneapolis. Other commercialland uses are found south toward Minnehahaand Franklin Avenue, within the service area ofthe Franklin Avenue station.

In the immediate station vicinity, land is currentlyin commercial use. Adjacent to the proposedstation is the open space of Currie Park and theadjacent Brian Coyle Community Center.

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CEDAR-RIVERSIDE STATIONPEDESTRIAN ACCESS

While the service radius of the Cedar-Riverside Avenue connection to the East Bank Universitystation covers a distance from Franklin Avenue campus. Both streets have heavy traffic andnorth to Washington, the major transportation limited pedestrian amenities that do not promotebarriers of I-94, I-35 and their multiple exit and walking. If this station is to draw riders from theentrance ramps hinder convenient access to the Seven Corners area with its theaters, restaurantsstation. Although there is a pedestrian path from and hotel, a safe and comfortable pedestriandowntown, it seems likely that most riders will path must be carved out along the streets.board LRT on that side of the freeways ratherthan cross to Cedar-Riverside. Potential riders South of Washington Avenue east of Cedar, thesouth of I-94 are likely to board at the Franklin West Bank campus of the University ofStation unless the walk to Cedar-Riverside is Minnesota may also funnel pedestrians towardextremely convenient. The major ridership draw 19th Avenue S. and then along Riverside tois anticipated to be the area east and north of the Cedar. Riverside, with its mix of institutionalstation, including the Cedar-Riverside residential and commercial uses, is a logical pedestrianand commercial neighborhood, the University of path. Sixth and Seventh streets east of CedarMinnesota, Augsburg College, and the Seven will probably function as pedestrian ways forCorners neighborhood. residents in that area or for Augsburg College

Because the station is located along the LRTline that skirts the edge of the neighborhood, Once pedestrians reach Cedar, clear andpedestrian paths will be vitally important to tie identified paths must be established to thethe area to the station. Since adjacent streets station. The size of the Cedars and Riversidehave heavy traffic, making the area safer for housing developments form a visible andpedestrians will be a high priority in this station somewhat psychological barrier to way-finding. area. A primary pedestrian path can be developed

Average Daily 1997 Traffic Counts to create a new station entry. This street

Cedar Avenue bike path. Sixteenth Avenue could become a(Washington to I-94) 20,900 to 13,100 landscaped pedestrian way that would provide aRiverside (at I-94) 17,100 gateway to the station area and complement theWashington Avenue green space at the Cedars housing.(at Seven Corners) 23,80019th Avenue (at Riverside) 13,600 Another pedestrian path could be developed

Because of the commercial uses along Cedar and Cedar Avenue Now a driveway for Cedarsand Riverside as well as the population density, housing, the area is a natural location for athe streets in this area always have pedestrians. pedestrian walkway that would not only provideWith a high level of vehicular traffic and a a connection from Cedar Avenue, but wouldvariety of turning motions off Cedar to create greater visibility for the station. ThisWashington, Riverside and other streets, walkway could help to create a more naturalpedestrians need safe, identified crosswalks. connection to the neighborhood and reduce theCrosswalks could be identified with paving sense of isolation in the current location.materials, landscaping, bumpouts, or otherdevices to provide greater protection. Signals It is important to make adequate connections tomust be set to allow adequate crossing time, transit as well. Since many bus routes run onparticularly across Cedar. Cedar, care must be taken to develop stops

The map indicates some likely pedestrian pathsfor LRT riders. From the Seven Corners areapedestrians will cross either the Cedar Avenueor 19th Avenue bridge over the Washington

riders.

along 6th Street and then south at 16th Avenue

currently dead-ends in a barrier to the existing

along the line of 7th Street between the station

where bus and LRT riders can wait for buses, orclearly identify the path to the station.

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CEDAR-RIVERSIDE STATIONDESTINATIONS AND MOVEMENT

Destinations MovementThe Cedar-Riverside station has the potential to The Cedar-Riverside station has good regionalserve a variety of destinations, including road access and is in the midst of many transitentertainment and commercial uses in Seven lines that run on Cedar, on I-94, and theCorners and along Cedar Avenue, a number of Washington Avenue connection to the Eastsignificant institutions, and a large residential Bank University campus. While it is certain thatpopulation concentrated in the neighborhood. It there will be transfers with buses on Cedarcan also provide efficient connections to the bus Avenue, connections with other nearby linesroutes that serve the neighborhood, as well as have not been established. For example, athe high number of bicycle riders among the number of buses follow the 5th and 6th street I-student population. 94 ramps into and out of downtown. It is

There are two main commercial and at the Cedar-Riverside station, or if LRT ridersentertainment destinations in this area: would simply transfer downtown. If suchC The section of Cedar Avenue south of transfers are envisioned, this station will be

Washington to I-94 has long been a accessible to a large number of transit routes. commercial street for students and This discussion will focus on the local routes,residents. It has a mix of retail shops, principally those on Cedar Avenue and adjacentrestaurants and bars and retains lively streets.activity both day and evening. The MixedBlood Theatre and the Southern Theatre are Cedar Avenue has transit service from routes 2,located here, and 7, 19, and 20. Routes 19 and 20 connect to

C The Seven Corners section of Washington South Minneapolis. Route 19 runs on Cedarand Cedar has restaurants, bars and the Ave. and connects to the Mall of America. Holiday Inn Metrodome. Route 20 connects to Highland Park in St. Paul

There are two recreational destinations in the also connect to other LRT stations along thearea: Hiawatha line. Routes 2 and 7 enter CedarC The Brian Coyle Community Center, at 420 from Riverside Avenue. Route 7 runs along

15th Avenue S. and Minnehaha to Fort Snelling and the Mall ofC Currie Park, a small neighborhood park America, while Route 2 serves Franklin Avenue.

adjacent to the Coyle Community Centerand the LRT station. The high student population in this neighborhood

There are two institutions of higher education in bicycle routes are few, however. One routethe area: runs along 6th Street east of Cedar and connectsC University of Minnesota West Bank Campus to 20th Avenue S., which in turn runs south

has classroom buildings including the Law across I-94 to Minnehaha Avenue. AdditionalSchool, the Humphrey Institute, the Carlson routes should be identified with convenientSchool of Management, and the Ted Mann crossings north and south along Cedar and 19thConcert Hall, and Avenue, as well as east/west across Cedar.

C Augsburg College Campus is a destinationnot only for students, but attendees atcultural and sporting events.

There several kinds of housing in the area:C Single-family and smaller multi-family

buildings are located primarily east of Cedar,C The high-rise Cedars housing and Riverside

housing are adjacent to the LRT station, andC Apartments are located over commercial.

unclear whether those buses might have a stop

along 42nd Avenue S. and E. 25th Street. Both

has encouraged heavy bicycle use. Identified

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CEDAR-RIVERSIDE STATIONZONING

Transit-supportive zoning is a principal tool for scrap or salvage yard, while such a use is notimplementing land use and community allowed in M2 or M1. development policies. By the end of 1999, Many of the business and manufacturing zoningMinneapolis anticipates adoption of a new zoning categories shown on the map have a secondordinance to replace its 1963 zoning code. The number, such as B3S-1 or M2-2. The secondnew ordinance will have an enhanced site plan number is a subdistrict of the base district andreview process that will give City staff the ability reflects the floor area ratio (FAR) and lot area, to foster transit-oriented development. This with the lower numbers again reflecting the leastdiscussion is focused on the existing zoning and intensity.its relationship to development opportunities asnoted later in this report. In the case of the Cedar-Riverside station, the

The immediate area surrounding the Cedar- misleading. Certainly these zones are locatedRiverside station is zoned primarily for high within the service radius of the station, but asdensity residential uses. The actual station noted earlier, the freeways are barriers tolocation is located in M2, limited manufacturing serving the area west and south of the station. zone, a continuation of the zoning district for the The area east and northeast of the station, fromcar shops area south of I-94 to the Franklin which most riders for this station are anticipated,Avenue station. is zoned for residential, business service and

Zoning districts in the area around the Cedar-Riverside station include: The advent of LRT should encourage additional

R2B Single- and Two-Family Residence

R3 General ResidentialR4 General ResidentialR5 General ResidentialR5A General ResidentialR6 General ResidentialB1 Office-Residence B2S Neighborhood ServiceB3S Community Service B3C Community Commercial B4 H Central RetailM1 Light Manufacturing M2 Limited Manufacturing M3 General Manufacturing

As with most zoning codes, in the Minneapoliscode, lower numbers generally indicate lessdensity and less intense uses. Thus M3, general manufacturing, allows an intensive use like a

long list of zoning categories is somewhat

community commercial uses.

retail and service development along CedarAvenue and in the Seven Corners area. Somelimited service and commercial uses should beanticipated in the station area as well. It isunclear how the residential area east of Cedarwill be affected. This small area of mixedhousing has long been surrounded by institutionsand managed to survive. While the areaprovides a remnant of the residential, theneighborhood has increasingly given way toinstitutional expansion. It is hard to predict if itcan continue to survive in future redevelopmentefforts.

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CEDAR-RIVERSIDE STATIONDEVELOPMENT OPPORTUNITIES

The density of settlement and growinginstitutions in this area of the city leave fewlarge parcels for development within the stationarea. Most parcels available for developmenthere are currently utilized as parking lots, andoften attached to business or housing that needthe parking spaces.

Vacant Parcels

Within the immediate station area there areseveral vacant parcels along the 15thAvenue/7th Street connection. Another smallparcel lies west of Cedar under I-94. Thesesmall parcels will likely be used for the stationconstruction and nearby uses. The parceladjacent to Cedar could be a possible transit stopconnected to the 7th Street pedestrian path tothe station. Care would be needed to create anattractive walk under the I-94 bridge to connectwith the path.

Underutilized Parcels

Several underutilized parcels present betteropportunities for redevelopment. Parking areasalong 6th Street northeast of the station arecurrently used by a restaurant and RiversidePlaza residents. While the need for parkingwould still need to be met, these areas would beexcellent for small service/retail businessesserving LRT riders, and could be incorporatedwith a gateway entrance to the station from 16thAvenue. Two larger parcels currently devotedto parking are located on Riverside west ofCedar. These locations overlook the busyinterchange and Cedar Avenue. A portion ofthese areas might be considered in improvingpedestrian and bicycle access on Cedar north toSeven Corners. There are also large parcelssuitable for development southeast alongRiverside Avenue.

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CEDAR-RIVERSIDE STATIONPOTENTIAL DEVELOPMENT SCENARIO

The challenge for the Cedar-Riverside station isto take a left-over corner of this neighborhoodand open it up for a new use that reclaims thespace and enhances it. This developmentscheme concentrates on the block between 6thand 7th streets, west of Cedar. It suggests astation that is visible to the I-94 traffic, but alsoone that relates back inward to theneighborhood.

Pedestrian paths are developed along 6th Streetand a new path is created along the line of 7thStreet from Cedar Avenue west. Another pathis suggested along 15th Ave. Sixteenth Avenueis an entry to the station with a landscapedbuffer along the Cedar housing. A new low-and mid-rise development is shown along 15thAvenue. This building fronts on the street andreinforces the pedestrian path along 16thAvenue.

The high-rise buildings nearby provide adifferent option for station area development. Inmost of the other station settings, low- to mid-rise buildings are appropriate, particularly in theneighborhood-oriented stations. At this site,however, a larger, more visible building could beaccommodated and fit in well with its neighbors. Because of its visibility, this location could, likethe Franklin station, provide a signature exampleof excellent transit-oriented development inMinneapolis. Creating a very visible destinationwould also help establish a sense of place in acorner that is now at the edge of a very vitalurban neighborhood.

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CHAPTER III: FRANKLIN AVENUE STATION

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FRANKLIN AVENUE STATIONOVERVIEW and MAJOR ISSUES

The Franklin Avenue station raises major yet it has a very diverse population of newchallenges and opportunities. It is located in an immigrants. It is the neighborhood with thearea dominated by automobiles, and isolated highest rate of transit dependent population infrom the neighborhoods on either side. the city. Many important Native AmericanInterstate 94 is a major barrier. A large former institutions are within the service area of thisrailroad corridor north of Franklin has been station. East of the station is the Sewardreserved as the location for the regional LRT neighborhood, a community known for itsmaintenance and storage facilities, that will housing and commercial redevelopment efforts. serve up to three LRT lines. The agencies Seward contains the Milwaukee Avenue historicresponsible for LRT implementation have agreed district, a street comprised of late nineteenththat although much of the railroad land needs to century worker's houses.be reserved for these critical LRT facilities, theagencies are considering neighborhood The Franklin Avenue station could become arecommendations to reserve a small portion of highly visible symbol that encouragesthe land just north of the proposed Franklin development in the station area with significantstation as potential development sites. The positive effects for the adjacent neighborhoods. Franklin Avenue Station platform will be located In order to achieve that goal, efforts must bein the middle of the LRT bridge directly over made to create a pedestrian realm that connectsFranklin Avenue. the station to the neighborhoods and to other

This station has real potential. The station couldbecome an important connection between two Major Issuesneighborhoods that are now separated by a CC Establishing a station that creates a centerlandscape of lanes of traffic that is suburban in for and unites adjacent neighborhoods,form. The station offers an opportunity for other C Using the station to encourage newdevelopment that can begin to create an urban development and redevelopment in thelandscape. The neighborhoods see a station on station area,the bridge as offering a wonderful opportunity to C Committing sufficient public resources in thisconnect Seward Neighborhood on the east to area to create the needed connections andPhillips Neighborhood on the west. to attract the needed investment,

If the proper pedestrian and streetscape retail and service needs, as well as newimprovements are made on the street and under neighborhood employment opportunities,the bridge, the station can serve as a gateway to C Linking LRT, regular route transit, bicycleboth communities. The current pedestrian path and auto connections efficiently,along Franklin is surrounded by concrete. It C Clearly identifying pedestrian paths alongpasses under a large overpass for Hiawatha major street connections by using lighting,Avenue on the west and crosses several wide, street furniture, landscaping and otherbusy streets before reaching the Seward amenities to provide pleasing pedestriancommercial area to the east. The stationprovides a center, and should be planned withlandscaped paths that make it comfortable, safeand accessible for pedestrians.

Aside from the urban design potential for thisstation, Franklin Avenue is an important street inMinneapolis history. With a streetcar line andcommercial district, historically Franklin was acenter for the Scandinavians and the South SideJewish community. Today the Phillipsneighborhood located west of Hiawatha isassociated with the Native American community

modes of transportation.

C Encouraging new development that provides

ways to the station,C Making special efforts such as pavement

materials or other indicators to develop apedestrian path at theMinnehaha/Cedar/20th Avenue intersectionwhere there are multiple auto/pedestrianinteractions, and

C Creating a safe pedestrian area alongFranklin by providing better lighting(particularly underneath the Hiawathabridge), buffers from street traffic, visible

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crosswalks, and well-calibrated trafficsignals.

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FRANKLIN AVENUE STATIONCITIZEN COMMENTS

Residents throughout the corridor responded Issues for Focus in the Planning Processwith comments. Those noted here werefocused on the Franklin Avenue station area.

Most Valued CharacteristicsWhen citizens were asked what things they mostvalued about the neighborhood. Two answerspredominated:C people, neighbors, known friends andC convenience to downtown, central location.

Numerous comments reinforced the importanceof the neighborhood location, noting theconvenience to the University of Minnesota andAugsburg College, downtown, and good transit,pedestrian and bicycle connections to the rest ofthe city. Many other comments cited theneighborhood character, stating that "theneighborhood 'feels' like a neighborhood; we seepeople we know." Other noted the "respectfulinclusion of racial and economic diversity incommunity decisions," the "cultural diversity,particularly the strong Native American identity,"and noted the many specific and uniqueinstitutions that serve the neighborhood.

Hindrances to Convenient Transit Access

All of the comments on this question related tothe isolation of the proposed station location andthe difficulty of reaching it. Four commentseach received many responses:C Street and LRT station platform: safety,

security, fear of people and crime,C Isolated,C Large car-dominated intersection at

Franklin/Cedar/Minnehaha, andC Physical gap between Phillips and Seward.

Commenters repeatedly noted the concern forpersonal safety and pedestrian safety in crossingmajor auto-dominated intersections and underthe Hiawatha overpass. These included:C "Sense of 'no-man's land' between but not in

neighborhoods,"C "The no man/woman's land that demarcates

Phillips from Seward,"C "Isolated in a wide open sea of intersection;

too remote from everything," andC "The ugly Hiawatha overpass that I walk

under and fear for my life."

This question invited participants to guide theplanning process by identifying areas ofparticular concern, the issues identified where:C Development should be stimulated by the

station,C Design should reflect cultures of the area,C Connections should be provided to other

transit: a neighborhood circulator, the cross-town bus service, and

C Safety issues should be addressed.

Respondents offered many insights andconcerns into station area planning; theseinsights include:C "Location next to LRT car yards and shops

takes away a lot of space for economicdevelopment,"

C "This station should be a stimulus forsurrounding economic development andshould reflect the cultural density in itsdesign and enhancements (American Indian,Southeast Asian, African, and African-American),"

C "Use good urban design--look at transitstations which work well in Portland,Oregon and elsewhere," and

C "Make it pedestrian-bike rider friendly andsafe (good lighting, emergency phones)."

Proposed Type of Near StationDevelopmentThe citizens wanted three kinds of developmentnear the station:C Mixed use, commercial with residential,C Good street design, andC Developments that serve residents in the

neighborhood as opposed to commuters.

Respondents offered these very thoughtfulcomments on their ideas for the station:C "Throughout history, transportation nodes

have been pivotal. We should 'feel' thatimportance as we approach Franklin Stationand interact there,"

C "A variety of services like Uptown or GrandAvenue in St. Paul with food stores, drycleaning, child care, coffee houses," and

C "A mix of entertainment, small live theaters,smaller ethnic food restaurants; less large

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commercial department stores such as Target or Builder's Square."

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FRANKLIN AVENUE STATIONPEDESTRIAN ACCESS

The pedestrian environment surrounding the Just north of 24th is a park with additionalFranklin Station is uncomfortable due to heavy housing on the north side. A pedestrian pathautomobile traffic and the numerous major street should follow along the park and go north tocrossings and its isolation from activity. The Franklin to provide convenient access forcurrent pedestrian ways are unfriendly, and pedestrians to the LRT station. While Cedarrequire an arduous effort to cross the area also connects to the Little Earth complex, it hasbetween the Phillips and Seward neighborhoods no provision for pedestrians and is not a safewhere the station is proposed. Traffic counts route. A defined, enhanced walkway wouldindicate the high levels of use on adjacent streets help connect the park to adjacent residents andeven though the rate of automobile ownership in provide efficient access for people south of 24ththe Phillips Neighborhood is the lowest in the Street to the services on Franklin.city.

Average Daily 1997 Traffic CountsHiawatha north of Franklin

southbound 16,400northbound 15,700

Franklin (at Cedar) 14,900Cedar (north of Franklin) 15,300Cedar (south of Franklin) 12,000Minnehaha (north of Franklin) 15,300

Creating safe, comfortable pedestrian paths is amajor challenge for the Franklin Station area. As the map shows, there are barriers topedestrian movement in every direction. Theportion of Franklin near the station has beenlowered to create adequate clearance under theHiawatha bridge. The pedestrian path under thebridge is dark, uninviting, and distant from areasof activity. It is an intimidating no man's land.

Along Franklin pedestrians must also crossmajor intersections. There are access roads onthe east side of Hiawatha Avenue. TheCedar/Minnehaha/Franklin triangle area hasnumerous crossings and vehicle turning lanes. Creating a pedestrian path along Franklin willrequire major efforts to create a safe andwalkable area that will encourage people to walkto the LRT station, and will connect the twoneighborhoods on either side of the station area.

Aside from the challenges of Franklin Avenue,there are other areas that should have identifiedpedestrian ways. West of Hiawatha there are anumber of community facilities and residentialareas that should tie in with pedestrian paths. The Little Earth of United Tribes housing development adjacent to Hiawatha south of 24thStreet is one of these, but there are many others.

Additional paths should be developed on 24thand north on Bloomington to Franklin. ThePhillips Community Center and the AmericanIndian Women's Resource Center are both on24th, making Bloomington an efficient path tothem from Franklin Avenue. Both Franklin and24th are on bus lines, reinforcing their need forenhanced pedestrian walkways.

East of Hiawatha, Franklin Avenue is theprimary pedestrian path for residents to reachthe station. There is a concentration of housingbetween Franklin and I-94; these housingresidents would follow Franklin to the station. To the south, Milwaukee Avenue is a logicalpedestrian route into the Seward Neighborhood. An historic district of worker's houses, the streethas been closed to automobile traffic and is apedestrian mall. Twenty Second Street providesan east/west connection in this portion of theservice area.

There is potential for serving residents in thearea around Augsburg College as well. Twentieth Avenue South provides a connectionacross I-94 that leads to Franklin. A pedestrianbridge across I-94 is east of 22nd Avenue S. andconnects to 9th Street S. adjacent to thefreeway. While the Cedar-Riverside station willalso serve the area north of I-94, some residentsmay find the walk to Franklin more convenient.

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FRANKLIN AVENUE STATIONLAND USE

The Franklin station is in an area of mixed landuses, with residential, commercial and industrialuses all nearby.

The immediate station area for the Franklinstation is comprised of industrial, commercialand institutional uses. The American IndianOIC is on a triangle of land adjacent to theproposed station location. The industrial andcommercial uses are in buildings on either sideof Franklin and are also adjacent proposedstation location.

Located in what was an industrial railroadcorridor, the station is near remnants of rail useand the open areas left when the railroads wereremoved. The bulk of remaining industrial usesare southeast of the station between Hiawathaand Minnehaha avenues.

Commercial uses predominate along Franklin ineither direction from the station, with asmattering of industrial and residential uses alsofronting on the street.

Residential uses are located in the Phillips andSeward neighborhoods. In Phillips single- andmulti-family residences are located both northand south of Franklin. There is a similardistribution of residential types in the Sewardneighborhood, although there is a strongerconcentration of single-family residences southof Franklin and a higher concentration of multi-housing north of Franklin.

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FRANKLIN AVENUE STATIONDESTINATIONS AND MOVEMENT

Destinations Movement The Franklin Avenue station is well situated to The Franklin Station will connect with a numberbring riders to a variety of neighborhood of bus lines that already serve the area. Thedestinations. In addition, it has great potential route 2 runs along Franklin and connects thefor connecting with other modes of University of Minnesota with Hennepin Avenue. transportation, particularly existing transit lines. Route 14 runs along Bloomington Avenue and

There are two commercial districts on Franklin: Route 20 runs along Minnehaha and 25th StreetC The east section of Franklin Avenue contains in the Seward neighborhood and connects

coffee houses, a hardware store, restaurants and Highland Park in St. Paul with downtownthe Seward Cooperative. Often housed in older Minneapolis and Plymouth Avenue in Northone- and two-story commercial buildings with no Minneapolis. Route 19 operates on Cedar Ave.setbacks and easy pedestrian access, these and connects with downtown, Olson Memorialbusinesses provide neighborhood commercial Highway, and the Mall of America.services to the surrounding area, and On 24th Street route 22 provides local service

C In the avenue’s west section the commercial from South Minneapolis to downtown. center is focused in the mall at Franklin and13th Avenue S. and the free-standing drug While there are a number of bus lines nearby,store adjacent to it. Set back from the the station will have to be designed tostreet, the mall's parking is in front. accommodate transfers from buses to LRT.

Area institutional destinations are:C American Indian OIC, 1845 Franklin

Avenue East,C Minneapolis American Indian Center 1530

Franklin Avenue East,C Franklin Business Center, 1433 Franklin

Avenue East,C Franklin Public Library, 1314 Franklin

Avenue East,C University Health Care/Variety Children's

Clinic, Bloomington Avenue,C Minnesota Indian Women's Resource

Center, 2300 15th Avenue South andC Phillips Community Center.

There is a variety of housing in the area; thetypes are:C The large Little Earth of United Tribes

housing complex which is located at 24thand Cedar,

C Several concentrations of higher densitypublic housing, senior housing and assistedhousing which are in both Phillips andSeward, and

C A large number of single-family residences.

People live in the area because of itsconvenience to downtown and its excellentaccess to transit.

connects to downtown and North Minneapolis.

Because the buses may be on Cedar, a blockfrom the LRT station, care must be taken tocreate accessible connections from the busroutes to the station area with adequate busshelters along the routes.

The primary bicycle route connecting to thisstation is 20th Avenue which connects theUniversity of Minnesota and Augsburg Collegewith Franklin and Minnehaha. Students whoride bicycles on campus may find it convenientto board LRT at Franklin because of thisefficient connection.

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FRANKLIN AVENUE STATIONZONING

Transit-supportive zoning is a principal tool for The Potential Development options suggestedimplementing land use and community for the Franklin Avenue station focus on thedevelopment policies. By the end of 1999, area surrounding the station zoned M2-2 or M1-Minneapolis anticipates adoption of a new zoning 1. There are large areas surrounding the stationordinance to replace its 1963 zoning code. The area with underutilized land, or containing usesnew ordinance will have an enhanced site plan not supportive of transit. These areas may havereview process that will give City staff the ability redevelopment potential in a comprehensiveto foster transit-oriented development. This station area plan and would be significant indiscussion is focused on the existing zoning and tying this station into the neighborhoods.its relationship to development opportunities asnoted later in this report. The great number of zoning districts surrounding

The immediate area surrounding the Franklin the service area. There are a number ofAvenue station is zoned for manufacturing uses. housing developments with a number ofBeyond the industrial corridor, business districts buildings, as well as multi-family and single-are located along Franklin in both the Phillips and family housing nearby. Similarly, there is a mixSeward neighborhoods. Residential areas are of commercial uses that reflect bothlargely located behind the business districts. neighborhood commercial as well as

Zoning districts in the area around the Franklin districts are prominent along Franklin and allowAvenue station include: more auto-oriented uses than B2 (Neighborhood

R2B Single- and Two-Family ResidenceR3 General ResidentialR4 General ResidentialR5 General ResidentialR5A General ResidentialR6 General ResidentialB1 Office-Residence B2 Neighborhood RetailB2S Neighborhood ServiceB3S Community Service B3C Community Commercial M1 Light Manufacturing M2 Limited Manufacturing

As with most zoning codes, in Minneapolis' code,lower numbers generally indicate less densityand less intense uses. Thus M3, general manufacturing, allows an intensive use like ascrap or salvage yard, while such a use is notallowed in M2 or M1.

Many of the business and manufacturing zoningcategories shown on the map have a secondnumber, such as B3S-1 or M2-2. The secondnumber is a subdistrict of the base district andreflects the floor area ratio (FAR) and lot area,with the lower numbers again reflecting the leastintensity.

this station shows the wide variety of uses within

neighborhood service uses. B2S and B3S zoning

Retail) or B3 (Community Retail).

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FRANKLIN AVENUE STATIONDEVELOPMENT OPPORTUNITIES

Because the Franklin Station platform will be Redevelopment/Enhancementlocated in the middle of the LRT bridge directlyover Franklin Avenue, there are opportunities fortransit related development both north ofFranklin and south of Franklin that could belinked directly to the station . Some thesepotentials may not be realized at first, but overtime auto and truck oriented uses in closeproximity to the station may give way to densertransit oriented development.

Vacant ParcelsThe large former railroad corridor north ofFranklin has been reserved as the location forthe regional LRT maintenance and storagefacilities to eventually provide for up to threeLRT lines. The agencies responsible for LRTimplementation have agreed that although muchof the railroad land needs to be reserved forthese critical LRT facilities, the agencies areconsidering neighborhood recommendations toreserve a small portion of the land just north ofthe proposed Franklin station as potentialdevelopment sites. Efforts should be made toreduce the amount of space needed for the carshops and surround them with transit-supportivedevelopment.

Vacant land is somewhat limited in the Franklinarea. Some land is available adjacent to theshop area north of Franklin and could be criticalin making an efficient connection to the LRTstation. Another area currently used for parkingis west along Franklin adjacent to Bloomingtonand the University health clinic. Developmenthere should improve the pedestrian environmenton this important corner and connect it with thepedestrian path on Bloomington as well.

Underutilized ParcelsUnderutilized parcels shown here are generallyareas devoted to parking lots. In some cases,these parking lots are attached to businesses orinstitutions that will continue to need parking. Inother cases, often the smaller parcels, these lotshave become parking by default and may bemore readily available for redevelopment.

Because parts of Franklin Avenue in the vicinityof the LRT station are underutilized and blighted, in order for the potential for this stationto be fully realized, careful planning and designand substantial public investment in the publicrealm are needed to take advantage of thelocation of the transit station. Some of theseuses are adjacent to the proposed station area,on the south side of Franklin adjacent to theAmerican Indian OIC and north of Franklinbetween Minnehaha and Cedar. These buildingscurrently house industrial uses and will likely berelocated as station development occurs.

Another large area is adjacent to the shoppingarea along Franklin west of 14th Avenue. Theshopping center is set back from the street witha large parking lot in front. The parking lot couldbe made smaller and enhanced with buildingsalong the street that complement the existingstores and make a better pedestrian environmenton these blocks. This section could be central toa more comprehensive effort to enhance thestreetscape along Franklin west of Hiawathamaking it a more comfortable and a saferpedestrian path to the LRT station.

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FRANKLIN AVENUE STATIONPOTENTIAL DEVELOPMENT SCENARIO I

Introduction to the Three Site Studies.Three station sites were studied in this project.They included locations north of Franklin, southof Franklin and on a bridge over the street. Each scheme recommends increased densityaround the station and shows pedestrianconnections that begin to provide the needed tiesto the neighborhoods. The significant constraintson this site demand that major planning effortsbe carried out to make the Franklin Station workfor pedestrian access and multi-modaltransportation.

Recently the Franklin Avenue LRT bridge sitehas been chosen as the station site. Thelocations north of the bridge and south of thebridge are shown to present other infil andredevelopment scenarios.

Each development scheme envisions highdensity uses along Franklin, which provideconnections between the track level and thestreet below and enhance pedestrian paths to theadjacent streets and the Seward and Phillipsneighborhoods. Each of these configurationsmight be adapted to create a defining building oroffice headquarters to create an image for theFranklin Station area.

Station Bridging Franklin AvenueThe opportunity to create a dramatic "signature"for LRT is possible with the station built on thebridge over Franklin. Such a station could bevisible from all nearby neighborhoods as well asI-94, offering Minneapolis a literal platform toshowcase its station area design and planning.

This scheme incorporates development on boththe north and the south sides of Franklin. On thenorth, low-and mid-rise buildings front onFranklin. The buildings adjacent to the car yardwest of Cedar have a shallow setback andpedestrian path overlooking Franklin. East ofCedar, a widened pedestrian path creates anentry and connection to the station from the 20thAve./ Minnehaha/ Franklin intersection and alikely bus transfer point. An enhanced walkwayat street level complements the track levelwalkways.

South of Franklin, this scheme retains theAmerican Indian OIC at its current location, butproposes new transit-oriented development westof the tracks. These mid-rise buildings centeraround an internal courtyard, with those onFranklin providing a strong edge on the street. Landscaping buffers these buildings and the OICfrom the tracks. This scheme also suggests apedestrian walkway across Franklin to makeLRT accessible to these businesses.

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FRANKLIN AVENUE STATIONPOTENTIAL DEVELOPMENT SCENARIO II

Station North of Franklin Avenue The greatest amount of development potential isshown in the configuration that places the LRTstation north of Franklin Avenue on land that isnot available for development because the landis needed for the LRT system. This schemeassumed that the new station-relateddevelopment could occupy a large share of theland that is slated for the LRT storage yard andmaintenance shops west of Cedar Avenue. Thestation occupies a central place in this plan,fronting on Cedar just south of a reconstituted9th Street S. that creates a grid system andconnects Cedar with the Hiawatha frontageroad. The blocks between the new 9th Streetand Franklin have mid-to high-density buildingswith a strong frontage overlooking Franklin.

The buildings sit at track level and have apedestrian way in front that connects to a lowerlevel pedestrian way at street level. All buildingsface toward the street, but are configured insuch a way as to provide an inner courtyard andefficient pedestrian connections to the station. By focusing on Cedar, the station starts toreinforce a pedestrian connection north alongthat street as well. Trees and other landscapingbuffer the car yard on the north from thedevelopment. Other landscaping is used to unifythe track level and street level pedestrian waysalong Franklin. This scheme does not affect anyof the buildings on the south side of Franklin.

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FRANKLIN AVENUE STATIONPOTENTIAL DEVELOPMENT SCENARIO III

Station South of Franklin AvenueThe scheme proposing the station south ofFranklin suggests mid- and high-risedevelopment on either side of the station andacross Cedar to the triangle of land west ofMinnehaha. Buildings adjacent to the stationfront on Franklin with track level and street levelpedestrian ways. Each block has a courtyard atthe rear of the buildings on Franklin withlandscaped plazas connecting to the station. Cedar Avenue south of Franklin is heavilylandscaped. Pedestrian connections andlandscaping are added at the Franklin Avenuestreet level to provide the connections to theneighborhood as well as to tie the newdevelopment to the station.

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CHAPTER V: THIRTY EIGHTH STREET STATION

4-1

CHAPTER IV: LAKE STREET STATION

4-2

LAKE STREET STATIONOVERVIEW & MAJOR ISSUES

The Lake Street Station is located in one of the and Hiawatha, has split surroundingbusiest and important commercial locations in neighborhoods. The Lake Street Station isthe Hiawatha Corridor. Of all the neighborhood located in the Phillips community at thestations, this station has greatest potential for northwest corner of the area. The Corcoranchanging surrounding land use with transit- neighborhood lies to the southwest and includesfriendly development that creates jobs, as well the South High campus while the Longfellowas improve commercial opportunities and neighborhood is east of Hiawatha encompassingprovides additional housing options.

Lake Street has historically been one of themajor east-west corridors in Minneapolis with abridge across the Mississippi River to St. Paulwhere it becomes Marshall Avenue. Becauseof the Selby-Lake streetcar line and later a busline, the street developed as a transit corridorfrom the turn of the century onward. It hascontinued to serve as a major commercial arteryalong its length from the Mississippi River westto Lake Calhoun. Some of those commercialcenters have kept their streetcar-era orientation,with dense construction--buildings up to thesidewalk and available little parking. Otherareas have undergone various stages ofredevelopment, from early 1960 shoppingcenters, to newer 1980 shopping malls that havelarge areas devoted to parking. The post-warshopping center development eroded the gridstreet system, leaving pedestrians to struggle inan automobile-dominated environment.

Because of Lake Street's historic function, theintersection with Hiawatha has been a majortransportation and commercial center for acentury. Hiawatha parallels the railroad thatinitially attracted industrial uses to the corridor.Hiawatha is an important truck and automobilecorridor as well. When completed, the overpassover Lake Street will efficiently channelautomobile traffic, but it will create anintimidating pedestrian corridor under it at theLake Street level. Automobile traffic exiting andentering Hiawatha at the overpass, createchallenging crossing areas for pedestrians.

In recent years, these important corridors havealso been planned for bicycle routes, withmarked routes extending along Hiawatha,Minnehaha south of Hiawatha, and a new east-west connection with the 29th Street Greenway. The impact of major transportation routes,including rail and the heavy traffic on both Lake

the commercial area both north and south ofLake. All three neighborhoods have residentswho will use the Lake Street Station fortransportation, along with the future commercialdevelopment, job opportunities and housing.

Major IssuesC Reinforce urban character by encouraging

transit-friendly development, C Encourage the redevelopment and

retrofitting of outmoded and underutilizedland and buildings,

C Encourage mixed land uses that complementeach other, such as residential, commercialand institutional,

C Encourage smaller scale commercialdevelopment rather than "big-boxes,

C Create new housing that adds to the varietyof housing choices within the city,

C Encourage housing with densities exceeding 20 units per acre where suitable,

C In the station area encourage pedestrianuses that serve transit riders and residentsand discourage additional auto-oriented uses,

C Create safe, and pleasant pedestrian pathsalong streets and through parking areas,

C Make efficient and understandableconnections between transit, bicycle, autoand pedestrian systems,

C Create a walkable, comfortable pedestrianarea along Lake Street and under theHiawatha overpass by providing extralighting, buffers from street traffic andtraffic signals with well-calibrated crossingphases,

C Place buildings so that they help define thepedestrian realm along Lake Street,

C Create well marked crosswalks atappropriate locations on Lake,

C Provide clear pedestrian areas at corners,and

C Provide a pedestrian and bicycle connectionfrom the 29th Street Greenway and theGreen Institute to the station area.

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4-4

LAKE STREET STATION CITIZEN ISSUES

Residents throughout the corridor responded Issues for Focus in the Planning Process with comments. Those noted here werefocused on the Lake Street Station area.

Most Valued CharacteristicsWhen citizens were asked what three thingsthey most valued about the Lake and Hiawathaneighborhood, three answers stood out:C Mix of residential and commercial land uses,C Access to downtown/ proximity to

Minneapolis and St. Paul, and C Access natural amenities: river, trails, green

spaces.

Each of these answers received at least tenresponses as valued traits. Hand-writtencomments elaborated on these considerations,with one respondent supporting the "urbancharacter of the area, diversity of people,entertainment and shopping opportunities," whileanother appreciated that she could "walk togrocery, coffee shop, library, and communitycenter." Several others noted the proximity todowntown, and access to transit.

Hindrances to Convenient Transit AccessCitizen response to a question regarding whatfactors hinder walking to a transit station wasoverwhelming: a poor pedestrian environmentwith empty spaces that is uninviting, andbleakThis factor received at least 30 responses--noother factors were even considered significantby the participants. These are examples:C "I have to pass through an area which I

consider a pedestrian wasteland."C "Back ends of buildings and developments

do not create a friendly space."C "Hiawatha is quite a formidable obstacle to

walking. Traffic moves very fast, it is veryexposed to wind and weather."

C "Streets designed for cars, not people."C "A rather ugly walk! Fumes, trash, ugly

buildings."

Numerous comments noted the difficulty ofcrossing an automobile-dominated Lake Street,particularly with groceries and children in tow.Waiting safely to cross is also a big challenge.

The issues that people wanted addressed are:C Put people first; design LRT to

accommodate a non-motorized lifestyle,C Use mixed-use zoning to encourage density,C Provide a seamless connection to other

paths and transportation modes, andC Emphasize amenities including architecture,

street furnishing, lighting and landscaping.

The variety of comments on how to implementsuggestions for station area planning are:C "LRT should be designed for people to be

able to walk/bike as a lifestyle choiceinstead of drive cars or avoid cars on theroad,"

C "Use mixed use--residential and commercialaround the station to attract riders to get offand spend money at Lake and Hiawatha,"

C "Create a sense of place relative toneighborhood character," and

C "Focus on attractiveness of corridor usingdesign criteria to guide landscaping and anhistorical look."

Proposed Type of Near StationDevelopmentRespondents were clear in their desire for afuture look for the Lake Street station. Theoverwhelming reposes:C An urban village development, similar to

Uptown with a pedestrian-focusedenvironment and mixed uses, and

C Green space, trees and landscaping.

This question elicited some of the most detailedand thoughtful comments. C "The neighborhood around Lake Street

should be one of the most urban and urbaneneighborhoods in Minneapolis. A departureshould be made from the strip mall andpower center development types (whileencouraging their tenants to stay). Mixeduse development should look like olderneighborhoods in San Francisco andBoston."

C "The station area should be almost adestination point of its own--with coffeeshops, gift shops, flower store, etc., so thatthere are things to do and look at."

4-6

LAKE STREET STATION LAND USE

Of all the stations studied in this project, theLake Street station has the greatest amount ofcommercial and institutional land in proximity tothe LRT station. Like Franklin and the otherstations to the south, the Lake station is adjacentto the former rail corridor and the industrial usesalong it. At this location, however, industrialareas at Lake and Hiawatha have beenredeveloped into commercial uses.

The largest commercial land uses are northeastand northwest of the station. To the northwestis the Hi-Lake Mall, a 1950s strip shoppingcenter. To the northeast is the Minnehaha Mall,built on the site of the former Minneapolis-Moline plant. Other commercial uses arelocated along Lake Street in both directions fromthe station.

Institutional uses are also located nearby, with anumber of community facilities within theservice area of this station. These includeschools and a YWCA in the quadrant southwestof the station, and municipal services including alibrary and police station east along Lake Street.

The remaining industrial uses are somewhatprominent in the station area. The corridor southof Lake from Hiawatha to Snelling retains itsindustrial uses. Other large industrial tracts areconcentrated north of 28th Street on either sideof Hiawatha.

Residential uses are located beyond main trafficarteries such as Lake and Minnehaha. Neighborhoods with largely single-family homesare located south of Lake on either side ofHiawatha. A smaller residential pocket islocated north of Lake, east of Hiawatha.

Also within this station area is the historicPioneers and Soldiers Cemetery at Lake andCedar Ave. In this densely settled area, thecemetery is an important open space in the midstof the city. Along the east-west rail corridornorth of the station the new 29th StreetGreenway will connect the lake district to thewest to the Mississippi River to the east.

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LAKE STREET STATIONPEDESTRIAN ACCESS

The major transportation routes have created an Pedestrian crossings for Lake Street, both eastoften uncomfortable pedestrian environment and west of Hiawatha, are inadequate and dobecause of the heavy automobile and truck not traffic and lack of adequate pedestrian feel safe. There are traffic lights at Snelling andcrossings. Difficulties occur for pedestrians in at 22nd Avenue S. and Lake, but there are nogetting across Lake, as well as crossing crosswalks or amenities such as wide sidewalksHiawatha, due to the width of these busy that make a comfortable place for pedestrians. arteries and the heavy traffic counts on them. With land use changes, it is possible that traffic

Average Daily 1996 Traffic Counts more convenient and/or safer corners. ForHiawatha (at Lake) 31,900Lake (Cedar to 31 Ave. S.) 27,800 to 16,800Minnehaha (south of Lake) 12,200Cedar (at Lake) 16,700

Potential riders from east of Hiawatha have onlyone path to get to the station location on thewest side: they must cross an unfriendly areaunder the Hiawatha Avenue overpass. Currently the sidewalk is broken up and littered,and it is dark under the overpass. Automobiletraffic is uncomfortably close to pedestrians. Plans for this area create a mini trafficinterchange under the overpass. If conditionsare not changed substantially, pedestrianswishing to reach the station will have to makefour separate crossings to get across all of thelanes of automobile traffic.

East of the overpass, the pedestrian environmentis poor. This is an area of superblocks, mallsand large parking lots with no pedestrian-scaledstreet grid for walking. The pedestrian way isan open corridor along Lake Street. The Targetstore parking lot is a popular short cut forpedestrians who frequently abandon shoppingcarts by the bus stop. There is no clear pathwaythrough the lots for pedestrians, who must dodgeautomobile traffic entering and leaving theparking lot. Parking lot lighting does not providea comfortable level of light for pedestrians. Nonearby buildings provide "eyes on the street" tosupport personal safety while walking.

The large amount of parking at this shoppingcenter should allow adequate space to create asafer and more comfortable pedestrian corridorto the east.

lights and crosswalks should be relocated to

example, a crosswalk may be more suitable at21st Avenue S. to serve pedestrians from theYWCA and South High School. Crosswalksshould be clearly delineated at the Cedar andMinnehaha intersections . In each case, thecrosswalks should be placed where they cansafely serve the most people. They need towork safely with traffic flow to provide accessto the Lake Street station.

The pedestrian environment on Lake west ofHiawatha should be enhanced. A comfortablepedestrian route should be identified inconnection with the redevelopment opportunitieson the northwest corner of Hiawatha and Lake. The Green Institute, on the parcel north of 29thStreet, should have pedestrian connections to thestation. There should be an identified pedestrianroute along the Hi-Lake Shopping Center or anyredevelopment in that area.

Minnehaha Avenue south of Lake retains arelatively comfortable pedestrian environmentwith both small business buildings and residencesplaced at consistent setbacks. They are orientedto the street.

4-12

LAKE STREET STATIONDESTINATIONS AND MOVEMENT

A primary reason for locating a station at Lake C South High School. This school is locatedStreet and anticipating its heavy use are the between 19th and 21st avenues, north ofconverging of various modes of transportation 32nd Street.and the numerous commercial, residential and C East Lake Public Library. The library isinstitutional destinations within a one-quarter located at 2727 E. Lake, convenient to bothmile radius surrounding the station. This area the shopping and adjacent residentialalso contains vacant and underutilized land that neighborhoods.is suitable for development and redevelopment C Minneapolis Police 3rd Precinct Station. opportunities.

The number of commercial destinations at thisarea are:C The Hi-Lake Mall. Dating back to the

1950s, this is a strip mall, which is set back There is a mix of housing near the station, theyfrom the street with a parking lot in front. are: The major tenant is the Savers Department C Trinity Apartments, senior housing locatedStore, with other smaller stores including an adjacent to Holy Trinity Lutheran Churchauto parts, discount clothing, laundromat and andother services. Two fast food restaurants C A variety of single-family and low-densityare located in separate buildings next to the multi-family housing located in thestreet. surrounding neighborhoods, most heavily in

C The Minnehaha Mall. Built approximately Corcoran and Longfellow.two decades ago on the site of the oldMinneapolis-Moline plant, the Minnehaha MovementMall is anchored by a Target store. Whilethe Target store has continued, smallerstores within the mall have languished. Alarge freestanding Cub grocery is located atthe corner of Minnehaha and shares themall's parking lot.

C Rainbow strip mall. The Rainbow store islocated east of Minnehaha, with a parkinglot in front.

C Lake Street East. This part of Lake Streethas a variety of service and retail uses in theblocks east of Minnehaha, which are locatedin older, streetcar-era buildings.

C Aspen Clinic. The clinic is located alongSnelling south of Lake.

The institutional destinations are: C Edison PPL School. It is located south of

Lake Street west of Hiawatha. Thiselementary school occupies the formerBrown Institute building and is surroundedby a large parking lot.

C The YWCA. A new YWCA will be built onthe block between 22nd and 21st south ofLake.

This station, is at 3000 Minnehaha Ave.C The new Green Institute. The Green

Institute is being constructed at 29th andHiawatha.

The Lake Street Station will be a multi-modallocation, with converging regular route transitand bicycle routes as well as pedestrian routes.

The area is already well served with regularroute transit. The route 21 bus line harkens backto the old Selby-Lake streetcar, connecting theMinneapolis Uptown area with downtown St.Paul. The 94L express runs the same route, butwith limited stops east of Hiawatha on its way todowntown St. Paul. Route 7 follows MinnehahaAvenue, connecting downtown Minneapolis andCedar-Riverside with Minneapolis-St. PaulInternational Airport and the Mall of America. Other routes are nearby or have limited runsalong Hiawatha such as route 20, and routes 19and 22 on Cedar Avenue west of Hiawatha. Passengers on these routes will be able toconnect with LRT at the Lake Street station.Marked bicycle routes also connect with theLake Street Station. Existing Hiawatha Avenueis a bicycle route, and another runs alongMinnehaha south of Lake. The 29th StreetGreenway will connect with the Hiawathabikeway at 28th Street East.

4-14

LAKE STREET STATION ZONING

Transit-supportive zoning is a principal tool for Potential Development options suggested for theimplementing land use and community Lake Street station focus on the immediate areadevelopment policies. By the end of 1999, surrounding the station .Minneapolis anticipates adoption of a new zoningordinance to replace its 1963 zoning code. The Except for the diagonal corridor of Hiawathanew ordinance will give the city staff the ability Ave. zoned M2-2, much of the land in theto encourage transit-friendly development and immediate vicinity of the station is zoned B3S,redevelopment on outmoded and underutilized Community Service. This zone allows goodsland and buildings This discussion is focused on and service uses not allowed in Communitythe existing zoning and its relationship to Retail (B3), particularly auto-oriented uses suchdevelopment opportunities as noted later in this as garages and motor vehicle sales. Otherreport. services such as dry cleaning and laundries, or

The immediate area surrounding the Hiawatha are also allowed uses in B3S. and Lake station is zoned for business andmanufacturing uses. Residential uses are often Large areas of M2 and M3 zoning lie alonga block back from Lake, although some Hiawatha, in the northwest quadrant north ofresidential fronts on Lake, and adjacent to 29th Street and in the northeast quadrant east ofHiawatha in the quadrant southwest of the Minnehaha Avenue. Only the land north of 28thstation. Street and west of Hiawatha, is vacant and

Zoning districts in the area around the Lake parcels are currently in use.Street station include:

R4 General Residential General Residence Districts, and allow for aR5 General Residential wider variety of residential units. These districtsR6 General Residential can accommodate greater housing densitiesB1 Office-Residence either by right, or with conditional use approvals.B2S Neighborhood ServiceB3 Community RetailB3S Community Service B3C Community Commercial M1 Light Manufacturing M2 Limited Manufacturing M3 General Manufacturing

As with most zoning codes, in Minneapolis' code,lower numbers generally indicate less densityand less intense uses. Thus M3, general manufacturing, allows an intensive use like ascrap or salvage yard, while such a use is notallowed in M2 or M1.

Many of the business and manufacturing zoningcategories shown on the map have a secondnumber, such as B3S-1 or M2-2. The secondnumber is a subdistrict of the base district andreflects the floor area ratio (FAR) and lot area,with the lower numbers again reflecting the leastintensity.

institutions such as trade schools and hospitals,

presents a development opportunity; the other

The residential zones are all classified as

4-17

LAKE STREET STATIONDEVELOPMENT OPPORTUNITIES

There are a variety of opportunities for transit- The smaller commercial buildings located onoriented development in the Lake Street Station Lake east of Minnehaha are prime candidatesarea. While there are several vacant parcels, for new commercial uses that provide goods andthere are also large areas that are underutilized. services needed in the neighborhood. ThisMany are parking lots. Other parcels have section of Lake Street has real potential foroutmoded buildings that may be suitable for creating an urban village because of theredevelopment or retrofit at a greater density. proximity of uses: the library, the TrinityThis map shows areas that fall into each of Apartments, the church, and buildings withthese categories. Illustrations on the following storefronts suitable for small businesses andpages offer various scenarios for transit-friendlydevelopment.

Vacant Parcels Much of the vacant land in the Lake StreetStation area is currently zoned industrial. Theseparcels are located northwest of 29th Street and21 Avenue S., and northeast of 28th Street andMinnehaha.

A potentially more significant strip of vacantland lies adjacent to the east side of theHiawatha overpass and running behind theMinnehaha Mall and south across Lake forapproximately one block. This narrow strip hasthe potential for pedestrian-oriented uses and/orbadly needed green space that could enhancethe needed pedestrian connections under theHiawatha overpass.

Redevelopment/EnhancementAreas close to the station have the potential forredevelopment and enhancement that make useof the opportunity that a light rail stationprovides. Several underutilized parcels are thelarge areas along Lake Street currently devotedto parking lots. The largest of these is theparking for Minnehaha Mall and the RainbowMall east across Minnehaha. The parking lotsurrounding Edison PPL School offers anothersizable tract. Although parking is needed forthese uses, efforts should be made to diminishtheir size by using parking strategies that permitthis land to be used more efficiently.

The Hi-Lake Shopping Center strip mall locatedadjacent to the LRT station also has the potentialfor a use that is more supportive of transit thanthe current uses.

offices.

4-20

LAKE STREET STATION POTENTIAL DEVELOPMENT SCENARIO I

Introduction divides the area into two blocks. The mid-riseThe following three development scenariospresent differing concepts of pedestrianamenities, redevelopment potential anddevelopment densities for the area surroundingthe Lake Street station. All three focus onimproving the Lake streetscape and thepedestrian connections under the Hiawathabridge to encourage the east-west pedestrianmovement that is vital to the success of thestation. Even though the station location isnorthwest of Lake and Hiawatha, the projectstudied a south of Lake option.

Each scheme adds improved pedestrianconnections along Lake, particularly under theLake Street overpass, where the current roaddesign accommodates the needs of cars butmakes it very difficult for pedestrians. Enhanced crosswalks are placed at Snelling eastof Hiawatha, and 21st, 22nd and 23rd avenueswest of Hiawatha. The crosswalks on the westwill provide an efficient connection to theinstitutional uses in that quadrant, including thenew YWCA, South High School, the EdisonPPL school plus any new redevelopmentproposed for that area.

In terms of land use and density, each schemealso concentrates the highest density uses andbuildings along Lake and Hiawatha, withproposed new housing set back from these busystreets which provides a transition to the nearbyneighborhoods. All three proposals incorporatelandscaping and some open space to enhancethe pedestrian realm. The schemes portraydifferent options to accommodate potential usersaround the Lake Street station, from industrialuses for buildings with large footprints, to greaterdensity mid- to high-rise buildings that may besuitable for signature buildings serving ascorporate headquarters.

Potential Development Scenario IIn the first scenario the LRT station is located atthe chosen site, in the northwest quadrant at theintersection of Hiawatha and Lake. Thequadrant is a mixed use area, replacing thecurrent auto-oriented commercial uses. The gridstreet system is reinstalled; 22nd Avenue S.

office buildings on Lake Street are built up to thesidewalk to encourage density adjacent to thestation, but also to create a comfortablepedestrian corridor. The buildings provide anedge for pedestrians and offer a feeling ofsafety with ground-level windows providing"eyes on the street." Trees and landscapingalong the street provide a canopy and help tosoften the impact of heavy traffic along Lake.

Additional low-rise buildings are located on thenorth half of these two blocks, but instead ofbeing the back of the block as in the currentconfiguration, both buildings have street frontageon 22nd Avenue S. as well as on 29th Street. Apedestrian corridor between the buildingsprovides convenient access to the LRT station. On the west along 23rd Avenue S. the blocksoverlook the historic Pioneers & SoldiersMemorial Cemetery, a green space amenity inthis area. The mid-rise residential buildings takeadvantage of the green space view, and providenear station housing that could be live/workhousing.

Much of the development proposed for thesouthwest quadrant is also mid-rise housing thatwill blend in well with the institutions already inplace, as well as the single-family residentialsouth of 31st Street. The exception is a mid-riseoffice building along Hiawatha, on the currentparking lot of the Edison PPL School. Thelarger office building provides a buffer forhousing from the noise of Hiawatha Ave., andalso keeps the highest density closest to thebusiest streets. A landscaped plaza extends toLake, providing a visual connection from thisbuilding toward the LRT station and a greenpedestrian gathering space at a busyintersection.

East of Hiawatha greater density isconcentrated along the street. New multi-usebuildings reflect the form of the streetcar erabuildings farther to the east with setbacks at thesidewalk edge. A mid-rise office building takesadvantage of the triangular site, which iscurrently a parking lot adjacent to Target, to notonly increase the density of use in theneighborhood, but to add an architectural

4-21

signature that could define the Lake Streetstation area.

4-23

LAKE STREET STATIONPOTENTIAL DEVELOPMENT SCENARIO II

Scenario II is very similar to scenario I. It hasintense development along Lake, residentialdevelopment in the southwest quadrant andpedestrian amenities along Lake which enhancethe public realm. The major change in thisscenario is the more intense use of thenorthwest quadrant adjacent to the station formixed office, commercial, residential andindustrial uses. The grid is partially restored toprovide access into the block, although thenorthern end is closed with a large, low-rise,industrial building.

The portion of the block fronting on Lake hasmore intense development; a high tower stepsdown to the street. This configuration offers aprominent building adjacent to the station whichcould serve as a highly visible corporateheadquarters. The western half of the block hashigh rise with mixed uses. It also steps down onthe west taking advantage of the view of thegreen space.

4-25

LAKE STREET STATIONPOTENTIAL DEVELOPMENT SCENARIO III

The third scenario moves the LRT station tosouth of Lake Street and concentrates thehighest intensity buildings adjacent to the LRTline. A mid-to high-rise office building isadjacent to the station on the south, with a largepedestrian plaza tying it to Lake Street. AcrossLake is a high-rise, distinctive signature buildingwith attached mid-rise structure. Both of theseconcentrate a high number of people very nearthe LRT station.

On the north side of the street, the grid ispartially restored along 22nd Avenue S., but itends mid-block with a low rise industrial building. A pedestrian walkway canopied by trees dividesthis building from the south half of the block. Between 22nd and 23rd avenues south are twobuildings. A mid-rise office building is locatedon Lake Street, and an adjacent housingoverlooks the cemetery. The addition of 22ndAvenue S. and the pedestrian walkway addinterior amenities to these blocks and providemultiple entry points and flexibility for thesebuildings.

5-2

THIRTY EIGHTH STREET STATIONOVERVIEW AND MAJOR ISSUES

Overview Major IssuesThe 38th Street Station is located in a largelysingle-family neighborhood and can beanticipated to serve residents and neighborhoodcommercial functions. In contrast to LakeStreet, this station will have limited commercialservices that are focused on neighborhood ridersand their needs.

The 38th Street station is in the shadow of grainelevators and heavy industrial uses on the eastside of Hiawatha. While some smaller areaswill be available for redevelopment, the overallindustrial character of that side of the corridornorth of 38th is not likely to have major changes.

South of 38th closer to Minnehaha Avenue,encompassed within the Howe and Hiawathaneighborhoods, there are some opportunities forhigher density housing and enhancingcommercial nodes to provide neighborhoodservices. Areas to the east of Minnehaha arepredominantly single family and should provideriders for the 38th Street station.

West of Hiawatha is the Standish neighborhood,one of the largest single-family areas accessibleto LRT. These blocks of houses, along withRoosevelt High School on 28th Avenue. S. canalso be expected to supply LRT riders.

A major concern of residents in the area issafety and improving access for pedestrians tothe LRT station. The difficulty of crossingHiawatha is a significant issue. There are alsoconcerns about making the station feel lessisolated and more comfortable for riders.

This station has great potential to serve a largenumber of neighborhood residents and someworkers in the existing industries. It also has thepotential to enhance neighborhood commercialnodes by providing for a clustering of businessesthat provide needed neighborhood services botheast and west of Hiawatha Avenue.

C Encouraging light industrial uses and/or otherjob-providing businesses on underutilizedparcels,

C Encouraging transit-friendly commercialdevelopment along 38th Street,

C Encouraging higher density residentialdevelopment where appropriate,

C Developing the green triangles of land southof 38th as a community amenity,

C Accommodating the needs, if possible of thecommercial business adjacent to the stationsite on 38th that serves as a neighborhoodgathering place,

C Creating a safe and pleasant pedestrian areaat the station,

C Buffering the housing to the west of thestation from the station and the bus hub,

C Providing safe pedestrian access acrossHiawatha and 38th,

C Creating pedestrian areas at corners toclearly identify crossings,

C Creating a comfortable pedestrian areaalong 38th east of Hiawatha by identifying apedestrian path and buffering it from streetand industrial traffic,

C Creating a comfortable pedestrian pathalong 38th Street west of Hiawatha byestablishing continuity through landscapingalong the street, and

C Using landscaping, paving materials or otheridentification elements to establishpedestrian connections south of 38th along28th Avenue S. to the Roosevelt HighSchool area.

5-3


5-4

THIRTY EIGHTH STREET STATIONCITIZEN COMMENTS

Residents throughout the corridor responded Others commented on various land use-relatedwith comments. Those noted here were issues:focused on the 38th Street station area. C Lack of shopping centers,

Most Valued Characteristics area historically that has been single-familyCitizens were asked what three things they mostvalued about the 38th Street neighborhood. Three answers predominated:C Quiet community related to river and

Minnehaha Park,C Accessibility to downtown, parks and

trails, andC Easy access to airport and freeways.

Each of these answers received at least tenresponses as valued traits. Participantselaborated on their responses with one personcalling the neighborhood a "unique, withcommercial, residential all in one area." The38th Street area clearly has a community feelfor residents, several of whom noted "goodneighbors--watch out for each other," or "stableneighborhood--long-time residents," as beingimportant characteristics.

Hindrances to Convenient Transit AccessAs with other station areas, respondents in the38th Street area noted walking to the station asthe biggest problem. In this area, the railroadtracks and crossing a busy Hiawatha Avenuewere identified as major obstacles, along with aresulting concern for safety. One respondentsummed up all potential problems: "ÒMy! Thehindrance would be crossing--passing throughthe milling/grain elevator corridor (smelly, windy,dirty), CP Railroad, Hiawatha Avenue(separates the quick and the dead)."

Three Issues for Focus in the PlanningProcessThis question invited participants to guide theplanning process by identifying areas ofparticular concern. The overwhelming issuenoted here was the clean up of industrial landand buildings in the station area. Onerespondent wrote of the need to address "thedark unsafe look of the grain elevators andgraffiti."

C Concern for new high density housing in an

homes,C Concern for commercial redevelopment

around the station and its impact on theexisting commercial buildings on Minnehaha,and

C The need for pedestrian-friendly access anddevelopment.

Proposed Near Station DevelopmentRespondents provided clear direction in theirvision for the future look of the 38th Streetstation. They envisioned:C An urban village with higher density and

mixed use. C Uses limited to neighborhood service and

small professional offices, andC Development should be 2-3 stories in height

with commercial or office on first floor andhousing on the upper levels.

Along with a land use vision, respondentsrecognized these parking and design issues:C One person suggested an " attractive design

with a lake or mill theme to depict ourneighborhood,"

C Another wanted "sculptures and creativesidewalk type structures to enhance thearea," and

C Another comment suggested that the stationarea needed "enough square footage toaccommodate 'kiss and ride' drop-off plus abus turn around."

5-6

THIRTY EIGHTH STREET STATIONLAND USE

The 38th Street station most clearly serves aresidential neighborhood located adjacent to anindustrial corridor between Hiawatha and Dightavenues.

The prominent land use around the 38th Streetstation is residential. Residential uses fillvirtually the entire station service area west ofHiawatha except for a few small commercialuses along 38th, and the primary institutional usein the area, Roosevelt High School on 28thAvenue S. and 40th Street. Residential uses arealso primary east of the Dight Avenue corridor. A few commercial uses are located in this area,largely in scattered spots along Minnehaha.

Industrial uses are prominent in this station area,exemplified by the grain elevators towering overthe immediate station area. Industrial uses fill allthe land between Hiawatha and Dight throughthe entire station service area.

The triangles of land along the western edge ofHiawatha are vacant.

5-8

THIRTY EIGHTH STREET STATIONPEDESTRIAN ACCESS

As with other station locations in the Hiawatha As a result, there is little continuity from blockCorridor, the 38th Street area is difficult for to block that helps to identify 38th as apedestrians because of heavy automobile traffic. pedestrian way. Traffic counts for nearby streets include thefollowing: Landscaping and encouraging pedestrian-

Average Daily 1997 Traffic Counts routes to the station. Care should also be taken

Hiawatha (at 38th Street) 35,300 Roosevelt High School area along 28th Avenue38th Street S. This institutional area can be expected to(28th to 36th Ave. S). 10,100 to 5,600 provide riders and should be enhanced alongMinnehaha with the commercial node at 28th Avenue S.(south of 38th St.) 9,300 and 38th Street.Cedar (south of 38th St.) 15,40035th Street (Cedar to Minnehaha,) 5,200 to 7,800

Potential LRT riders from east of Hiawathahave a difficult path to reach the station andmust cross heavily traveled Minnehaha Avenue,railroad tracks, Dight Avenue and heavyindustrial facilities with truck traffic before theyreach Hiawatha. Major east-west crossings inthis vicinity are 35th Street and 38th Street,neither of which currently has special provisionsfor pedestrian traffic.

The large number of single-family homes as wellas various multi-family buildings east ofHiawatha make it imperative that a highly visiblepedestrian way be developed along 38th Streetusing paving materials, landscaping or otherelements that create a buffer from traffic. Inaddition, better crosswalks and pedestrian pathsare needed to facilitate crossing 38th Street. Commercial nodes and housing both north andsouth of 38th, east of Hiawatha, need to beaccessible to facilitate pedestrian movement.

West of Hiawatha there is great potential fordeveloping pedestrian paths and commercialopportunities along 38th Street and south on 28thAvenue to the Roosevelt High School area. This area has predominantly single-familyhousing. There are commercial corners at 24thAvenue S. and another around 28th Avenue S.along 38th Street that can offer services forLRT riders. Housing is scattered along 38th andis usually oriented to the avenues, rather than38th.

oriented businesses will create better pedestrian

to improve pedestrian connections with the

5-10

THIRTY EIGHTH STREET STATIONDESTINATIONS AND MOVEMENT

Destinations While in the shadow of one of Minneapolis'heavy industrial areas, the 38th Street station willserve largely single-family residentialneighborhoods on either side of Hiawatha. Italso has the potential to enhance neighborhoodcommercial activity in the area near the station.

A number of small retail and business outlets line38th Street west of Hiawatha. Several neighborhood commercial nodes arelocated along Minnehaha Avenue east ofHiawatha. The largest of these nodes is at theintersection with 38th; smaller nodes occur at35th, 36th, 39th and 40th.

There is a cluster of institutions within walkingdistance of the station. They are:C The Roosevelt High School, C The Roosevelt Public Library and C Our Redeemer Lutheran Church.All are located at 28th Avenue S. and 40thStreet approximately two blocks south of theproposed LRT station.

The industrial corridor that occupies virtually allthe land from Hiawatha east to Dight is anemployment destination for potential users of the38th Street station.

There are number of residential types in thearea:C The Simmons Manor housing complex is

located at the southwest corner of 38th andMinnehaha,

C Additional low-rise apartment buildings arelocated on Snelling north of 38th Street,

C Single-family neighborhoods include theStandish neighborhood west of Hiawatha,and the Howe and Hiawatha neighborhoodseast of Hiawatha, and

C A mix of housing types in the area fromDight to Minnehaha that include some multi-family units.

MovementThe 38th Street station will be accessible topedestrian, bicycle and bus routes. The area isalready well served with regular route transit. Route 19 connects the Mall of America withdowntown and runs along 28th Avenue S. to38th and then west in the station area. Route 7follows Minnehaha Avenue, connecting theairport and Mall of America with downtown viaCedar-Riverside. Other routes are nearby andhave limited weekday runs along Hiawatha, suchas routes 20 and 22. These routes typically stopat 38th and then run directly into downtown.

Marked bicycle routes also connect with the38th Street station. Bicycle routes currently runalong Hiawatha Avenue and along MinnehahaAvenue.

5-12

THIRTY EIGHTH STREET STATIONZONING

Transit-supportive zoning is a principal tool for Potential Development options suggested for theimplementing land use and community 38th Street station are concentrated on the eastdevelopment policies. By the end of 1999, side of Hiawatha in areas that are currentlyMinneapolis anticipates adoption of a new zoning zoned M1 or M2. The current manufacturingordinance to replace its 1963 zoning code. The zoning will allow a wide variety of uses; somenew ordinance will have an enhanced site plan areas may be downzoned to accommodatereview process that will give City staff the ability lesser intensity business and commercial uses.to foster transit-oriented development.

This discussion is focused on the existing zoning zoned R1A. This station area has predominantlyand its relationship to development opportunities single-family dwellings and a strongas noted later in this report. neighborhood character that will continue. Some

The immediate area surrounding the 38th Street of Hiawatha along 38th and 37th where R4 andstation is single-family residential and R5 zoning are present along Minnehaha. Otherneighborhood and community commercial on the housing may be appropriate as part of mixed usewest side of Hiawatha. The area east of developments in the business and communityHiawatha is much more diverse with uses that zones along 38th Street. The business zoninginclude large grain elevators, manufacturing, and along 38th west of Hiawatha indicates a varietya mix of commercial and housing prior to the of enterprises along the street that might bepredominantly single-family housing enhanced as part of a major access corridor toapproximately five blocks east from Hiawatha the LRT station.along 38th Street.

Zoning districts in the area around the 38thStreet station include: R1 Single Family ResidentialRIA Single Family ResidentialR4 General ResidentialR5 General ResidentialB2S Neighborhood ServiceB3-1 Community RetailB3C Community CommercialB3S Community ServiceM1 Light ManufacturingM2 Limited Manufacturing

As with most zoning codes, in the Minneapoliscode, lower numbers generally indicate lessdensity and less intense uses. Thus M2, limited manufacturing, allows a more intensive use thanallowed in M1.

Many of the business and manufacturing zoningcategories shown on the map have a secondnumber, such as B3C-1 or M2-4. The secondnumber is a subdistrict of the base district andreflects the floor area ratio (FAR) and lot area,with the lower numbers again reflecting the leastintensity.

Much of the surrounding residential area is

higher density housing may be appropriate east

5-14

THIRTY EIGHTH STREET STATIONDEVELOPMENT OPPORTUNITIES

The 38th Street station area has its greatestpotential for development in the areasimmediately adjacent to Hiawatha Avenue. Unlike other areas in the Hiawatha Corridor,much of the land adjacent to the railroad tracksis still in heavy industrial use and not availablefor redevelopment at this time. This map showsareas that should be examined for development.

Vacant ParcelsThe few vacant parcels in the 38th Street stationvicinity consist of property just west ofHiawatha that was acquired for transportationuses. These triangular pieces of property will beadjacent to the LRT line but not particularlyaccessible from major streets. Much of the landhas been used for new single-family housing. Afew parcels remain open adjacent to theproposed station location on either side of 38thStreet and may be suitable for limitedcommercial uses or mixed uses with apartmentsabove the commercial. Any other remainingland will likely be a green space amenitybetween the residential neighborhood andHiawatha Avenue.

Underutilized ParcelsThe underutilized parcels offer the bestopportunity for development in this station area. These parcels are east of Hiawatha on eitherside of 38th and near the intersection with 35th,40th and 41st. They consist of land withindustrial buildings that may no longer be in useor parking lots. Located at Hiawatha and crossstreets that are paths to the stations, theseparcels are strategically located to takeadvantage of pedestrian traffic. Several ofthese parcels are large enough to allow forseveral buildings or a large building.

Redevelopment/EnhancementLand is classified in this category because itdoes not support transit and is typically auto-oriented. There are only a few scattered sitesthat have these land uses in the 38th Streetstation vicinity: two are located on 38th at Dightand at Minnehaha.

5-16

THIRTY EIGHTH STREET STATIONPOTENTIAL DEVELOPMENT SCENARIO

This potential development option suggests alandscaped station area and turn around north of38th Street. Because the station is adjacent tohousing, a landscaped area buffers the LRTfacilities from the rear yards of housing frontingon 29th Avenue. S. The kiss and ride parkingthat serves the station can serve as a parking lotfor the commercial building that serves as aneighborhood gathering place for manyresidents. A neighborhood park for children ismade on the triangle piece of land one half blocksouth of 38th.

East of Hiawatha Avenue, this scheme envisionsnew low- and mid-rise commercial buildingsfronting on Hiawatha and 38th on underutilizedindustrial land. Other low-rise structures forbusiness or light industrial uses are shown alongHiawatha both north and south of 38th Street.

Landscaping is suggested along 38th, Dight,Snelling and Minnehaha both to enhancepedestrian paths and to soften the impact of thegrain elevators.

New mid-rise housing units are shown at 37thand Minnehaha, providing an example of hownew construction could blend into theneighborhood without harming the single-familycharacter of the 38th Street station area.

6-1

CHAPTER VI: FORTY-SIXTH STREET STATION

6-2

FORTY-SIXTH STREET STATIONOVERVIEW AND MAJOR ISSUES

OverviewThe 46th Street station area has excellentpotential to become the urban village that manyresidents and planners hope will evolve aroundLRT stations. This station area already includesresidential, commercial and recreational usesthat will contribute to creation of a successfultransit station. In addition, there is significantredevelopment potential in underutilized land.

The 46th Street station is a gateway toMinnehaha Park and the Minnehaha Parkwaybiking and walking trail, a part of the citywidepark system. It is also an efficient connection toSt. Paul along 46th Street and the Ford Bridge. Numerous institutional uses are in the vicinity,including the Minnesota Veteran's Home east ofMinnehaha Park, and the Veteran'sAdministration Hospital farther south alongHiawatha.

The 1960s Parkway Plaza strip shopping mallalong with several freestanding restaurantscurrently provide commercial outlets in the area. These uses take up much of the block betweenNawadaha Blvd. and 46th Street; all are aimedat automobile users.

There are strong, single-family neighborhoods oneither side of Hiawatha, including the Ericssonand Minnehaha neighborhoods on the west andHiawatha on the east. Residents enjoy the areabecause of its proximity to the parks andbecause they are safe, comfortableneighborhoods.

In order for an urban village style ofdevelopment to occur, efforts must be made toprovide better pedestrian pathways throughoutthe station area, and particularly to improveaccess across Hiawatha. Redevelopmentoptions should concentrate on pedestrian-oriented development to serve transit riders inthe neighborhood.

Major IssuesC Encouraging transit-friendly development

and redevelopment on outmoded andunderutilized land that take advantage of theproximity of Minnehaha Park,

C Recycling existing buildings and creatingnew buildings which relate to a newgreenway that connects to Minnehaha Park,

C Creating new development west of the LRTstation that buffers the neighborhood fromthe new bus hub,

C Creating comfortable, safe and pleasantpedestrian paths along Hiawatha, 46th Streetand Minnehaha.,

C Linking transit, bicycle, auto and pedestrianconnections efficiently,

C Using landscaping and pedestrian paths totie the 46th Street station to MinnehahaPark,

C Creating walkable, comfortable crossings at46th and Godfrey/ Minnehaha Parkways toenable pedestrians to cross Hiawatha safely,and

C Developing pedestrian paths through thecommercial area from Minnehaha to 46theast of Hiawatha, and a path on the west forpedestrians walking from the parkway area.

6-3


6-4

FORTY-SIXTH STREET STATIONCITIZEN COMMENTS

Residents throughout the corridor responded residential streets. Others reiterated a concernwith comments. Those noted here were for safety in walking to the station and within thefocused on the 46th Street station area. station area.

Most Valued Characteristics Proposed Near Station DevelopmentCitizens were asked what things they most Respondents were clear in their vision for thevalued about the 46th Street neighborhood. Two station area. A high number of respondentsanswers received the most support: supported the following:C Proximity to green space, river and park and C Mixed use (retail, residential, commercial),C The safety and security of the neighborhood. C Landscaping and streetscape that supports

Some of the comments elaborated on these C No parking lots or large stores.characteristics, citing the "proximity ofresidential to recreation ensures a safe Among the detailed comments was one thatenvironment," and "neighbors have invested in stated "development should be like an 'urbanthe quality of life in a residential community." village' which combines multistoried buildingsOne consistently-noted comment was that the with retail on first floor, living space on otherarea was quiet, a significant characteristic for floors." Several others suggested a need forthese responders. three story, low-rise apartments, townhouses

Hindrances to Convenient Transit AccessOnly one major issue stood out as a hindrance:safety concerns in crossing the industrial area,the railroad tracks and Hiawatha. Othercomments reflected concerns over lack of iceand snow removal, through traffic in theneighborhood and congestion on neighborhoodstreets.

Issues for Focus in the Planning ProcessThis question invited participants to guide theplanning process by identifying areas ofparticular concern. Those identified were:C Stores and services convenient to riders,C Pedestrian friendly design,C Sound barriers, andC Parking by non-resident riders.

One respondent urged development that has"architecture/aesthetics that match neighborhoodcharacteristics." Others urged the "preservationand enhancement of park systems," and supportfor a "new urban" design. There was supportfor "surrounding development that providesservices to transit users."

One respondent urged that the corridor not "looklike a war zone--any barriers should beconstructive, artistic outlets." Others notedpedestrian safety, accessibility to the station areaand concerns about commuter parking on

pedestrians, and

and condominiums within the station area.

6-6

FORTY-SIXTH STREET STATIONLAND USE

Of all the stations in the corridor, the 46th Streetand the nearby Minnehaha Park stations havethe largest open space land uses nearby. Thelocation of the park to the southeast as well asMinnehaha Creek meandering south of 46thoffers an amenity for this station.

A neighborhood commercial center east ofHiawatha forms the largest commercial land usein this station service area. Other smallercommercial corners are located at intersectionsalong Minnehaha.

There are industrial uses located in the railcorridor east of Hiawatha to Snelling Avenue. The industrial uses are more prominent farthernorth and decline substantially by 46th Street.Here the area becomes more commercial andresidential.

Aside from the commercial and industrialcorridor along the east side of Hiawatha, thepredominant land use in this service area isresidential. Much of the service area is single-family residential, especially west of Hiawatha. The area to the east is also single-family withmulti-family buildings scattered along MinnehahaAvenue.

6-8

FORTY-SIXTH STREET STATIONPEDESTRIAN ACCESS

Pedestrian access is particularly important at the reach the station. Other east/west streets do not46th Street station because of the variety of cross Hiawatha, and a continuous pedestrianattractions that will cause lively activity here. path along the east side of Hiawatha seemsThe combination of access to transit, the unlikely because of industrial uses. As a result,availability of shopping and restaurants, the it seems logical to emphasize pedestrian pathsparkway, bike routes and the nearby location of along Minnehaha, 46th, and the Nawadaha Blvd.Minnehaha Park will all bring pedestrians and and Godfrey/Minnehaha Parkway. These areasmulti-modal transportation options to the station should be enhanced by landscaping, streetarea. furniture, paving materials, crosswalks and signs

Traffic counts here are high and compounded bya number of intersections which cause multiple While a pedestrian path is less likely alongstops and turning actions within a short distance Hiawatha Avenue north of 46th, a betterof each other. pedestrian way should be developed in the

Average Daily 1997 Traffic Counts Godfrey/Minnehaha Parkway. The current stripHiawatha (north of 46th) 27,700Hiawatha (46th to Minnehaha Pkwy) 26,800Hiawatha (south of Minn. Pkwy) 23,50046th Street (west of Hiawatha) 6,30046th Street (east of Hiawatha and at Ford Bridge) 12,800 to 16,200Minnehaha (north of 46th) 8,700

At this location also Hiawatha Avenue is themajor barrier for pedestrians trying to reach thestation from the east. There is a traffic light at46th and another at Minnehaha Parkway to thesouth, but these crossings are not comfortablepedestrian ways. Both crossings can beanticipated as major pedestrian paths and shouldbe designed using paving materials, signs, and landscaping. Signal timing should be pedestrianfriendly.

46th Street is a major connection to St. Paul viathe Ford bridge. Currently the street is four-lane, divided by concrete medians. Althoughthere is some auto-oriented commercial atMinnehaha, much of the rest of the street ishousing that is oriented to the avenues, ratherthan 46th. This corridor could become anexcellent pedestrian path with lighting,landscaping and judicious use of paving materialsto help identify a pedestrian realm. Replacement of the concrete medians withlandscaping would enhance the visual connectionto the bridge and nearby Minnehaha Park.

Residents in the neighborhoods east of Hiawathaand north of 46th will probably use 46th Street to

to identify their use for pedestrians.

commercial area concentrated between 46th and

mall configuration emphasizes automobile, ratherthan pedestrian traffic. If the current mallremains, efforts should be made to create apedestrian area through the large parking lot. Ifnew development occurs on the site, a transit-oriented design that emphasizes pedestrians overautomobiles should be incorporated.

West of Hiawatha, Minnehaha Creek itself is abarrier to pedestrian movement. Pedestrianpaths here should follow 34th Avenue or beplaced adjacent to Hiawatha Avenue where itwould serve pedestrians crossing at theparkway. There are also footbridges at selectedlocations to enable crossing the creek. Thepaths along 46th and 34th Avenue should beenhanced and identified as pedestrian ways,similar to the streets east of Hiawatha.

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FORTY-SIXTH STREET STATIONDESTINATIONS AND MOVEMENT

The convergence of residential, commercial and A variety of single-family and low-density multi-recreational uses make the 46th Street station an family housing is located in the surroundingexcellent location for transit. The area is easily Ericsson, Minnehaha and Hiawathaaccessible from St. Paul across the Ford bridge. neighborhoods.

The commercial destinations are: MovementC The Parkway Plaza, a strip mall which dates

back to the 1960s, occupies over half of theblock from Nawadaha Blvd. to 46th on theeast side of Hiawatha. Set back from thestreet, it has a parking lot in front andcontains a variety of commercial servicesthat are appropriate for a station area.These include restaurants, copy service, hairsalon, cleaners, dentist, sewing shop and avideo store. There are free-standing, auto-oriented restaurants at either end of the malland

C A new drug store is located on the northeastcorner of Hiawatha and 46th. An auto-oriented commercial node consisting of twogas stations and a convenience food storeare located on three corners of theintersection.

The institutions in the area are the:C Ericsson Elementary School and Saint

Helen's School which are located at 44thStreet and 32nd Avenue S.,

C Hiawatha Elementary School which islocated at 42nd Street and 42nd Avenue S.and

C Minnesota Veteran's Home which is locatedon the east side of the park.

The major recreational destinations are: C The 171-acre Minnehaha Park which is

located just to the southeast of the station. Home of the famous Minnehaha Falls, thepark also provides access to hiking andbiking trails along Minnehaha Creek, and

C The Minnehaha Parkway which is a verypopular part the Grand Rounds ParkwaySystem connecting the lakes to the west tothe Mississippi River to the east.

In this area there are work-related industrialdestinations. These are located along Hiawathaand Dight north of 45th Street. Some sites havepotential for redevelopment that may offeradditional job opportunities.

The 46th Street station will be multi-modal, withregular route transit, LRT, bicycle routes andpedestrians all converging at the location.

The primary bus route serving the area is route 7which follows Minnehaha Avenue connectingdowntown and Cedar-Riverside withMinneapolis-St. Paul International Airport andthe Mall of America. Route 22 runs on 34thAvenue S. and 42nd Street, connecting theairport and Veterans Hospital with downtown. Passengers on these routes will be able toconnect with LRT at the 46th Street station.

Marked bicycle routes also connect with the46th Street station. Routes run along existingHiawatha Avenue, and Minnehaha Avenue is abicycle route along its entire length. Anotherpopular route runs along Minnehaha Parkwayand along Minnehaha Creek, both of which areconvenient to the 46th Street station.

6-13

FORTY-SIXTH STREET STATIONZONING

Transit-supportive zoning is a principal tool for Most of the potential development optionsimplementing land use and community suggested for the 46th Street station involve landdevelopment policies. By the end of 1999, east of Hiawatha that is currently underutilizedMinneapolis anticipates adoption of a new zoning or has land uses that are not supportive toordinance to replace its 1963 zoning code. The transit. One large tract behind the strip mall isnew ordinance will have an enhanced site plan currently zoned M1-1 and has large spacesreview process that will give City staff the ability devoted to parking and some obsolete industrialto foster transit-oriented development. buildings. Other areas for potential

This discussion is focused on the existing zoning 45th and Snelling, are zoned R1A.and its relationship to development opportunitiesas noted later in this report. There is a strip of mixed housing zoning

The immediate area surrounding the 46th Street residential neighborhoods in the station vicinitystation is primarily single-family residential on are zoned R1A and R1 south of Minnehahathe west side of Hiawatha. The area east of Parkway.Hiawatha has business and service uses oneither side of 46th Street, but light manufacturingjust north of and behind the commercialfrontage. A mix of residential and business usesline Minnehaha Avenue farther east along 46thStreet.

Zoning districts in the area around the 46thStreet station include:

R1 Single Family ResidentialRIA Single Family ResidentialR2B Single and Two-Family ResidentialR5 General ResidentialB1 Office-Residence B2 Neighborhood RetailB2S Neighborhood ServiceB3S Community ServiceB3SP Community Service ParkingM1 Light Manufacturing

As with most zoning codes, in Minneapolis' code,lower numbers generally indicate less densityand less intense uses.

Many of the business and manufacturing zoningcategories shown on the map have a secondnumber, such as B3C-1 or M2-4. The secondnumber is a subdistrict of the base district andreflects the floor area ratio (FAR) and lot area,with the lower numbers again reflecting the leastintensity.

development, such as the northwest corner of

categories along Minnehaha Ave. Other

6-15

FORTY-SIXTH STREET STATIONDEVELOPMENT OPPORTUNITIES

There are several opportunities for transit-oriented development in the 46th Street stationarea. While there are few vacant parcels, thereare a number that are underutilized, often withlarge parking lots. Other parcels have outmodedbuildings that may be suitable for redevelopmentat a greater density.

Vacant ParcelsThe bulk of vacant parcels in this station areaare located west of Hiawatha in the areaacquired for roadway expansion a number ofyears ago. Many of these areas, such as thosealong 34th Avenue S. from 43rd to 44th streets,have new single-family construction. The areasimmediately north and south of the station arearemain open for new transit-orienteddevelopment.

Underutilized Parcels

Most of the land available for developmentopportunities falls into this category. It is largelyland with one story buildings or land devoted toautomobiles, usually in parking lots, as is thecase for the tract in front of the shopping centersouth of 46th Street. Although cars need to beaccommodated in the corridor, the proximity tothe LRT line makes there uses more attractive. For example, open parking or storage areas thatfront on Snelling Avenue could be utilized forredevelopment, such as the tract at 45th andSnelling zoned R1A.

6-17

FORTY-SIXTH STREET STATIONPOTENTIAL DEVELOPMENT SCENARIO I

This development scheme presents a mixed-use,pedestrian-oriented urban village in the 46thStreet station area. West of Hiawatha thescheme envisions a mixed use developmentbetween the station and the existing housing thatbuffers the new housing units further to the westfrom the bus hub and the LRT station. A childcare center is a possibility for the site south of46th Street.

East of Hiawatha the development andredevelopment is much more extensive. Inaddition to the new housing that faces theexisting neighborhood, new light industrialbuildings with job opportunities and /or mixed usedevelopment line Hiawatha. These buildingsprovide for denser development and at the sametime provide a buffer for the housing to the easton Snelling.

A commercial center is set on Hiawatha oneither side of 46th Street. It reflects smallercommercial businesses, rather than "big-box"type retailers that are incompatible with thescale of this neighborhood. Live/work units arepossible on 46th Street west of Snelling.

The pedestrian connections and landscaping areimportant elements. Landscaping helps to definethe pedestrian realm on 46th. East of Hiawathaand south of 46th, the new crossing leads to thecenter of the mixed use development ofresidential and commercial on the current stripmall site. The scenario reintroduces a gridsystem into an otherwise large, triangular-shapedblock. Low- to mid-rise housing units fill thearea, focusing on an internal courtyard.

6-19

FORTY-SIXTH STREET STATIONPOTENTIAL DEVELOPMENT SCENARIO II

Like the one before it, this development schemepresents a mixed-use, pedestrian-oriented urbanvillage in the 46th Street station area. West ofHiawatha the scheme envisions a mixed usedevelopment between the station and theexisting housing that buffers the new housingunits further to the west from the bus hub andthe LRT station. Instead of a child care center, itadds a mix of single-family and attached, low-rise units on the site south of 46th.

A commercial center is set on Hiawatha oneither side of 46th Street. It reflects smallercommercial businesses, rather than "big-box"type retailers that are incompatible with thescale of this neighborhood.

East of Hiawatha the development andredevelopment is even more extensive than thefirst scenario. New light industrial buildings withjob opportunities and /or mixed use developmentline Hiawatha as in the first scheme, but thedevelopment is more intense along Dight andthere is more housing south of 46th Street.

Pedestrian connections and landscaping areimportant elements in defining the 46th Stationarea. There is a new pedestrian crossing atDight south of 46th. This crossing is part of anew green street that starts above 45th andextends to Minnehaha Park. In addition to beingan amenity that gives character to thedevelopment, this green spine capitalizes on theproximity of Minnehaha Park by linking this newurban village to the park.

7-1

CHAPTER VII: MINNEHAHA PARK STATION

7-2

MINNEHAHA PARK STATIONOVERVIEW AND MAJOR ISSUES

OverviewAs indicated by its name, the Minnehaha Parkstation is one of the few stations with a majorrecreational use in its service area. Located at50th Street opposite Minnehaha Park, the stationalso serves the predominantly single-familyMinnehaha neighborhood to the west. Becausethe station will be across from a pedestrian-bikeonly access point to Minnehaha Park, it willserve as a Gateway to Minnehaha Park.Nokomis neighborhood residents see the LRTstation as an asset to the community and feel astation will provide a great entrance to bothMinnehaha Park and the NokomisNeighborhood.

Modest levels of additional development aredesired by community residents, particularlysouth of the Minnehaha Park Station and acouple blocks north of the VeteransAdministration Medical Center station. Anycommercial development that occurs shouldserve residents as well as transit riders, andcomplement, rather than compete with thedevelopment that is already in the area.

Citizens who responded to questions about thisstation clearly value the park and want topreserve it and the character of theneighborhood when LRT is built. They suggesta station that provides information about the parkand reflects an architectural style in keepingwith the park, neighborhood character, and theheritage and history of the area.

Issues surrounding this station are related tocreating safe pedestrian paths to the area andinsuring pedestrian safety in crossing Hiawatha. Redevelopment opportunities are limited becausethere is little available land. Someredevelopment may occur on the commercially-zoned land between 52nd and 53rd streets southof the station, but will be smaller in scalebecause of the sizes of parcels available. Anyredevelopment around the station at 50th Streetwould be smaller-scale commercial with somehousing included.

Major IssuesCC Safe pedestrian access across Hiawatha,C Creating a safe and comfortable pedestrian

area around the station and along thepedestrian ways leading to the station,

C Building a station that reflects the characterof the neighborhood and provides aninformational entry to Minnehaha Park, and

C Encouraging smaller-scale, transit-orientedredevelopment around the station and alongHiawatha.

7-3


7-4

MINNEHAHA PARK STATION CITIZEN COMMENTS

Comments noted here are focused on theMinnehaha Park station area.

Most Valued CharacteristicsThe most predominant answer on all questionsrelated to the 50th Street station was the naturalsetting, and the access to Minnehaha Park andits amenities. Residents here value the park andwant it respected in all station area planningconsiderations.

Respondents also noted that they enjoyed thesmall town atmosphere of the area, and in theircomments noted "great people" and "goodneighbors" as important to them.

Hindrances to Convenient Transit AccessOne answer predominated as a hindrance totransit access: the distance to the station. Respondents noted several aspects related toconnections:C "Buses only go north-south; no east-west

bus access to the station,"C "Traffic light timing at 50th and Hiawatha,"C "Cold; winter snow and ice," andC "Sidewalk not available for full length of 50th

Street."

Issues for Focus in the Planning ProcessThe respondents in the park station areaoverwhelmingly chose one primary issue:Bus feeders into and through neighborhood. No other issue received many responses to thisquestion.

In comments, respondents also noted otherconsiderations, stating that safety was an issue. One person wrote "access to Minnehaha Park isrestricted at 50th Street, creating safetyconcerns. An underpass should provide accessat 50th." Others suggested that stations be"equipped with devices that indicate when theLRT vehicle is on the road and when it willarrive," and also suggested security cameras beplaced in all stations.

Proposed Near Station DevelopmentIn their vision for development near the station,residents noted the following:C The architecture of the station should be

compatible with the style of park structuresparticularly the historic train station,

C New denser housing should be located closeto the station and respect the scale of theneighborhood

C New commercial development should servetransit riders and community residents, and

C There should be a sense of awareness thatMinnehaha Park and Minnehaha Falls arenearby.

Residents did not want a large commercial nodeat 50th and Hiawatha, but rather wanted thestation to blend into the area and have "signagethat directs people to park attractions." Onerespondent suggested adding a neighborhoodnode bus feeder to 50th and 34th Avenue S.commercial uses, as well as a "pedestrianpromenade" from the station to Lake Nokomisas an amenity.

7-6

MINNEHAHA PARK STATIONLAND USE

The Minnehaha Park station serves institutions,large areas of open space and single-familyresidential neighborhoods. As its name implies,the station will serve visitors to the park, aregional open space that dominates the easternside of Hiawatha Avenue near this station.

The major institutional use in this station area isthe Minnesota Veteran's Home east ofMinnehaha Park. This large, historic facility willbe more accessible to transit with the proximityof this station. Other veterans facilities in thestation area include the hospital south of 54thStreet.

Single-family residential uses dominate the areawest of Hiawatha Avenue, with remarkably fewintrusions. There are a few two-familydwellings and one multi-family concentration. Commercial uses in the neighborhood areconcentrated along Hiawatha, primarily south of52nd.

7-8

MINNEHAHA PARK STATIONPEDESTRIAN ACCESS

The Minnehaha Park station is somewhat uniquein that it does not have residential neighborhoodson both sides of Hiawatha Avenue. Thelocation of Minnehaha Park and the MinnesotaVeterans Home on the east side of the roadcreate a different type of LRT ridership than theresidential neighborhoods on the west side of theline. While residents might be expected to rideLRT for work commutes, riders to the park orveterans facility might be using LRT on eveningsor weekends when commuter ridership is low. In either case, Hiawatha Avenue will still be abarrier for pedestrians.

Average Daily 1997 Traffic CountsHiawatha (north of 50th) 23,500Hiawatha (south of 50th) 26,60050th St. (at Hiawatha) 1,40042nd Ave. S. (at 50th) 2,30054th St. (at Hiawatha) 3,100

Virtually the only pedestrian crossing from theeast side of Hiawatha in this station area is at50th Street. The only other crossings are atGodfrey/ Minnehaha Parkway to the north, or tothe south at 54th Street. This crossing wouldalso be appropriate for persons walking to theveteran's facility, with the path crossingMinnehaha Creek nearby.

The park station should also be reached by awell defined pedestrian path along the west sideof Hiawatha Ave. This path should extend northto the Minnehaha Creek area where it couldconnect with the path to the 46th Street station.

Within the residential neighborhood to the westof Hiawatha, 50th Street, 42nd Avenue S., and54th Street are the primary pedestrian paths. Both 42nd and 54th are bus lines as well andshould be enhanced to encourage comfortablepedestrian pathways. The regular street gridsystem in this area of Minneapolis facilitatespedestrian access to the station and otherneighborhood facilities.

7-11

MINNEHAHA PARK STATIONDESTINATIONS AND MOVEMENT

DestinationsAlthough Minnehaha Park predominates, thereare a variety of destinations in the MinnehahaPark station area.

Minnehaha Park is a major recreationaldestination at this station. The 171-acre park islocated along the eastern boundary ofMinnehaha Avenue from Godfrey Parkway onthe north to roughly 52nd Avenue on the south. It contains Minnehaha Creek, the renownedMinnehaha Falls, picnic areas, hiking trails,biking trails. Several historic buildings, theStevens House, the Longfellow House, and thePrincess Depot are located in the park.

There are two major institutional destinations bythis stop; they are:C The Minnesota Veterans Home, 5101

Minnehaha Avenue andC The Veterans Administration Hospital

located south of 54th Street which will havea separate LRT station.

There are two commercial areas near thisstation; they are:C A small commercial district consisting of a

mix of motels and auto-oriented businesseswhich form a line along Hiawatha between52nd and 54th streets and

C A small node at 50th and Hiawatha with arestaurant and a small commercial building. This node is immediately adjacent to thestation location.

There are both single family and multi-familyhousing near the station:C The neighborhood west of the station is

predominantly a variety of single-familyresidences, and

C There are some low-density multi-familybuildings located close to the station site.

MovementThe Minnehaha Park station is accessible tobicycle paths and regular route transit. Route 7is the primary bus route through theneighborhood, running along 54th Street and42nd Avenue. It connects the airport withdowntown, primarily along Minnehaha andHiawatha. Route 20 serves Minnehaha Park,but runs to downtown via 46th Avenue, 36thAvenue, and 25th Street and does not serve theMinnehaha residential area. As noted by citizencomments, there are no east-west bus lines inthe area except route 15 on 54th Street, whichruns west to Cedar Avenue and into Richfield.

The Minnehaha Avenue bicycle route that runsthrough South Minneapolis continues throughMinnehaha Park across from the station. Bicycle users following the route will pass the50th Street station along Minnehaha Avenue inthe park.

7-13

MINNEHAHA PARK STATIONZONING

Transit-supportive zoning is a principal tool forimplementing land use and communitydevelopment policies. By the end of 1999,Minneapolis anticipates adoption of a new zoningordinance to replace its 1963 zoning code. Thenew ordinance will have an enhanced site planreview process that will give City staff the abilityto foster transit-oriented development. Thisdiscussion is focused on the existing zoning andits relationship to development opportunities asnoted later in this report.

The immediate area surrounding the MinnehahaPark station is primarily single family residential. The area east of Hiawatha is devoted toMinnehaha Park and the Minnesota VeteransHome on the banks of the Mississippi River.

Zoning districts in the area around the stationinclude:

R1 Single Family ResidentialRIA Single Family ResidentialR4 General ResidentialR5 General ResidentialR2B Single- and Two-Family ResidenceB2 Neighborhood RetailB2S Neighborhood ServiceB3S Community Service

As with most zoning codes, in Minneapolis' code,lower numbers generally indicate less densityand less intense uses.

Many of the neighborhood retail and servicezoning categories shown on the map have asecond number, such as B2-1 or B3S-2. Thesecond number is a subdistrict of the basedistrict and reflects the floor area ratio (FAR)and lot area, with the lower numbers againreflecting the least intensity.

The large majority of area around the station iszoned R1 or R1A, both districts for single-familyresidential uses. This district is also used for thepark and veteran's facility. The commercialdistricts are limited to small business uses alongHiawatha, including stores, resturants,automotive uses and several motels in the twoblocks between 52nd and 54th streets.

7-15

MINNEHAHA PARK STATIONDEVELOPMENT OPPORTUNITIES

Opportunities for transit-oriented developmentare limited in the Minnehaha Park station area. The residential neighborhood to the west of thestation is fully developed, while Minnehaha Parkand the Veterans Home occupy most of the landto the east of Hiawatha. There are severalsmall parcels along Hiawatha that are suitablefor infill development.

Because there are so few parcels available fordevelopment, they will be discussed generally,rather than individually in this section. There arethree small parcels noted as vacant in the blocknorth of 50th Street. Most other parcels are inthe small commercial node between 52nd and54th along Hiawatha. These parcels are acombination of auto-oriented businesses andparking areas. While an infill commercialbuilding might be suitable on these lots, anylarger redevelopment would require acquisitionof existing businesses. This location could besuitable for convenience businesses serving theneighborhood. Residents expressed a desire forsome small commercial development at 50thStreet and envisioned a moderate amount ofredevelopment over time between 52nd and 54thstreets near the station. They were concernedthat the signage respect the character of theneighborhood.

7-17

MINNEHAHA PARK STATIONPOTENTIAL DEVELOPMENT SCENARIO

This development scheme concentrates on rental and sales for use in the park, such assmall-scale development in the immediate station cross country skis, snowshoes, rollerblades andarea, enhanced landscaping, pedestrian pathsand biking paths for Minnehaha Park. Whilesome redevelopment may occur in the areaswith commercial zoning, it is likely that anychanges could increase density, but not greatlyalter the current land uses.

The scheme identifies an improved pedestrianpath along 50th Street, drawing pedestrianstoward the station at its intersection withHiawatha. The station is buffered from nearbyresidential by landscaping, which also helps toframe the pedestrian path. A small business/commercial building is integrated into the blocksouth of the station; it connects to theneighborhood with landscaping and a small plazaalong Hiawatha. Redevelopment continues inthe triangular block south at 44th Avenue S. withseveral low-rise buildings that could houseresidential, commercial or mixed uses. Newresidential buildings that match existing single-family dwellings occupy the west side of theblock facing other single-family houses. Extensive landscaping ties each of these areasto each other and to the station.

The proposal for the park envisions extensivelandscaping framing new roadways and pathsfor driving, biking and hiking. The plan takeswhat is currently a large open area and divides itinto a series of outdoor spaces and vistas thatintroduce visitors to various sections of the park. A grand entry is envisioned at 50th Street,where crosswalks provide a prominent, safecrossing of Hiawatha. The plan alsoincorporates a broad path to the MinnesotaVeterans Home and provides a more grandentrance to that facility.

Types of modest intensity developments thatneighborhood residents envision for thisparticular area include both multifamily housingand retail. They suggested a moderate amountof multifamily housing such as apartments overcommercial, apartment buildings and seniorhousing. Community and transit based retailsuggested right at the station or close by includerestaurants, coffee house, small coop grocery,child care facility, bakery, bookstore, post office,library branch and sports equipment

bicycles.

linking light rail transit to the city: six neighborhood ...linking light rail transit to the city:...

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