HomeMy WebLinkAboutCCP 02-22-2000
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CITY OF ARDEN HILLS
4364 WEST ROUND LAKE ROAD
ARDEN HILLS, MN 55112-5794
AGENDA
JOINT WORKSESSION
CITY COUNCIL AND PLANNING COMMISSION
CITY HALL
**TUESDA Y, FEBRUARY 22, 2000, 4:45 P.M.
4:45 P.M.
Call to Order
1.
4:45 P.M.
2.
Discussion Items
a. City Hall
I. Architectural Alliance, Presentation of Revised Interior
Design
2. Sewer and Water Connection
b. Metropolitan Council Presentation, Metro Transit
Restructuring Study/Service Plan
c. Future Land Use Discussion as Proposed by Vento Re-Use
Committee and Comprehensive Plan Update (Joint
Worksession with Planning Commission)
d. Highways 96/10 Discussion
6:30 P.M.
Miscellaneous Items
3.
7:30 P.M.
4.
Adjourn
The above times may vary depending upon tength of issue discussion.
PHONE: (651)633-5676 . FAX (651) 633-7839
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CITY OF ARDEN HILLS
MEMORANDUM
DATE:
January 20, 2000
TO:
Joe Lynch, City Administrator
Dwayne Stafford, Puhlic Works Director 9\.
New City Hall Sewer and Water Connection
FROM:
SUBJECT:
Backl!round
When the original plans and specifications for the proposed new City Hall were prepared, no
provisions were addressed for sewer and water hook ups between the new City Hall property line
and the existing City lines near Highway 96 and Hamline A venue. The project was then bid
without this necessary connection.
A six-inch (6") ductile iron pipe would adequately serve the water needs for the new City Hall.
If the City were to instead install a twelve-inch (12") main to the new City Hall site, the
opportunity exists for a future twelve-inch (12") cross connection to the City of Shoreview's
sixteen-inch (16") water main on Lexington Avenue. The City currently has an eight inch (8")
cross-connection to the Shoreview water system near Target on Lexington, and an eight inch (8")
cross-connection with New Brighton at Stowe and Cleveland Avenues. No cross-connections to
neighboring cities exist on the north side ofI-694. The City of Shore view would be interested in
this connection as it could benefit both cities in the event of an emergency. Additional costs for
this twelve-inch (12") water main to the City Hall site would be approximately $8,000. To
continue the twelve inch (12") line from the new City Hall site and connect to Shoreview's
system on the east side of Lexington would cost approximately an additional $65,000.
The proposed location for the new City Hall on Highway 96 has no median cut in the highway to
allow access for east bound Highway 96 traffic. This access would be provided with the
reconstruction of Highway 96 at some point. However, the time frame for this reconstruction is
uncertain.
Recommendation
The Public Works Director recommends that the City Council authorize BRW to prepare plans
and specifications for the water main, using twelve inch (12") pipe, and provide that information
to Architectural Alliance for including with the City Hall re-bid. The Director also recommends
a highway median cut be considered for the project and authorize the City Engineer to prepare a
cost estimate for such a cut.
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REUMINARY UTlUTY PLAN
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Sectors 1 and 2
Restructuring Study
Volume II: Service Plan
for
o Metro Transit
Metropolitan Council
November 1999
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Metro Transit
Sectors 1 and 2 Restructuring Study
Volume 11: Service Plan
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Further east, Apache Plaza service is reoriented to emphasize the redeveloping Silver Lake
Avenue side of the property. Apache Plaza would continue to be selVed by Lines 1 and 4.
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Lines 1 and 25 would be combined for more effective and frequent service (see detailed
description). The streamlined Line 1 would run from Minneapolis to Northtown via East Hennepin.
Stinson, 33rd, Silver Lake, and Highway 10. By combining the parallel Stinson and Silver Lake
services in SI. Anthony, the plan reduces duplication while retaining coverage and responding to
patterns of ridership. Almost all developed areas in SI. Anthony remain within 1/4 mile of service,
while the service concentrates on the higher-ridership portions of the current line segments.
Mounds View would continue to have all-day fixed route service along Silver Lake Avenue, but
without the current deviation, Mounds View would also be served by the proposed new Flex Route
system (see detailed description).
Finally, southeastern Anoka County is served by the Flex Route system and also by improved
Minneapolis-oriented peak express service. Expanded and upgraded Park-and-Ride facilities are
planned on 1-35W at both the Arsenal site (replacing the existing Mounds View facility) and at 95111
Avenue in Blaine.
Further Enhancements in 25% Growth Scenario
In this scenario, frequencies are upgraded on most of the remaining Northeast Minneapolis radial
lines to produce a grid pattem of services running every 15 minutes all day. The No Growth
scenario provides this level of service only on Central (to 53rd) and Como (to Raymond). By
contrast, the 25% Growth scenario offers this level of service on Central, Como, Stinson, Johnson,
and 1 BIt1/Grand (the present west side of Line 18 ending at Columbia Heights Transit Center.) In
addition, Line 32 service on Lowry is upgraded to run every 15 minutes all day, permitting fast
transfers in any direction al Lowry's intersections with all of the north-south routes.
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In Columbia Heights, a new east-west crosstown service, Line 31, would run from Brookdale via
Columbia Heights, Apache Plaza to Rosedale. This link connects many residential areas to their
nearest shopping center, and also enhances the convenience of many other suburb-ta-suburb
trips. The line would make fast, timed connections with the other services meeting at Rosedale
and Columbia Heights, so that it could be used to reach many other suburban. destinations.
Further north, the same route structure is proposed lor both scenarios, but with somewhat greater
frequencies and spans of service in the 25% Growth scenarios. See the next chapter for precise
details.
ROSEVILLE AND POINTS NORTH (SUBURBS BETWEEN 1-35W AND 1-35E)
The existing low-ridership Roseville Circulator system is limited by three features:
. Most routes have no major destination at their outer end, so they are useful only for trips into
Rosedale.
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Nelson \Nygaard Consulting
4-2
November 2, 1999
Metro Transit
Sectors 1 and 2 Restructuring Study
Volume 11: Service Plan
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This line replaces portions of present Line 12 and also provides new, more direct access to Como
e Park, one of the most popular urban par\(s in the region.
74. Dale
This crosstown line, the current Line 17, is revised to continue north on Dale 10 County Road B2,
. then via County Road B2, Victoria, County Road B, and follow the route of the present service.
This new deviation replaces a portion of the Roseville Circulator system that serves some
apartments. This line, too, should eventually run every 15 minutes, though for the moment only 3D-
minute service can be afforded.
76. Johnson Parkway (No Growth Only)(
This line is the No Growth version of Line 66, described above. Without new resources, the
Johnson Parkway crosstown can run only from Hillcrest to Mounds Par\(. At Mounds Par\( (Bums
and Earl), a timed connection would be provided to Line 69 for trips continuing into downtown.
77. White Bear Avenue
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This new crosstown running from Maplewood Mall to Sunray is identical to existing Line 20. In the
25% Growth scenario, the service is quadrupled to run every 15 minutes all day, for more effective
connections with the many intersecting lines. (The No Growth scenario headway is every 30
minutes.) After a layover at Sunray, buses continue onto Line 68, so that it is poSSible to continue
into downtown without transferring, n desired.
78. McKnight (25% Growth Scenario Only)
In the 25% Growth scenario, new crosstown service is proposed along McKnight linking
Maplewood Mall and Sunray Transit Center. This service also permits Line 6510 provide a more
direct link between North SI. Paul and the "big box' retail area around 1111l & White Bear.
79. Highway 120 (25% Growth Scenario Only)
In the 25% Growth scenario, this line extends from Maplewood Mall via Highway 244 (County
Road E) 10 Century College, then straighl south via Highway 120 to Sunray Transit Center. This
line permits the Oakdale Flex Route (Line 219) to operate further east for better coverage of
Oakdale.
SUBURBAN LOCALS AND FLEXROUTES (200-239)
201. East River
This line covers the highest ridership parts of East River Road, largely north of 1-694. At the north
end, it continues like the present Line 27 to Northtown. At the south end, it operates via 1-694,
University, 4411l, Central to Columbia Heights Transit Center, replacing current Une 10 service on
Nelson\Nygaard Consulting
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November 2, 1999
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Volume 11: Service Plan
to this area, including the Correctional Facility, is very low. However, connections could be made
to the Flex Route 209 for access anywhere in Lino Lakes, Lexington, Circle Pines, or Centerville..
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The 2S% Growth scenario makes further improvements to the frequency of Line 2S5, increasing its
attractiveness and capacity.
260. RoseviIJe-Minneapolis RAPIDBUS (All Day Express)
New haff-hourly express service is proposed between Rosedale Transit Center and Minneapolis,
with timed connections to the many local lines converging in Rosedale. The express segment
would run nonstop from Rosedale to the University Avenue interchange on 1-3SW. It would then
use the 101h Avenue bridge to Washington into downtown, providing access to the university as
well as the downtown area.
In the 2S% Growth scenario, certain peak period service would continue north of Rosedale in a
loop routing serving the highest-demand areas of Shoreview and northem Roseville. This service
would permit commutes out from Minneapolis to the 1-694/Lexington employment area, as well as .
inbound commutes from Victoria Avenue into the city.
268. Maplewood-Minneapolis
Current Line 36 service is retained as Line 268, providing peak-direction express service from
Maplewood Mall and the Highway 61/County Road C Park-and-Ride to Minneapolis. every 20
minutes during peak hours. The extensions into White Bear Lake are replaced by connections with
Lines 270 and 218.
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ST. PAUL BASED EXPRESSES AND RAPIDBUS (270-299)
270. White Bear Lake-Maplewood-St. Paul RAPIDBUS (All Day Express)
A major new service is proposed to replace the weak outer portions of Line 15 in the denser
portions of the City and Township of WMe Bear Lake. From Centerville Road & Highway 96, Line
270 would run via Highway 96, Otter Lake, 41h to downtown White Bear Lake, then south via White
Bear Avenue to Maplewood Mall. This service would then continue as a new all-day express
service to downtown St. Paul. Riders from many other local lines will have timed connections to
this service at Maplewood Mall. Service would run every 30 minutes all day, connecting with every
trip of most of the local routes serving Maplewood Mall, and continuing with the same headway to
downtown White Bear Lake and the pockets of density around Otter Lake.
275. Centerville-Vadnais-St. Paul Express
This route is identical to the current Centerville express service, except that it uses Centerville
Road instead of '-3SE north of its Vadnais Heights stop at Highway 96. This alignment is almost as
fast as the backtracking alignment used today, and provides both additional coverage and
additional opportunities for few Park-and-Ride locations close to '-3SE.
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NelsonlNygaard Consulting
5-10
November 2, 1999
Sectors 1 and 2 Restructuring Study
Metro TransR Volume II: Service Plan
e Chapter 7
The Primary Transit Network:
Strategies for Maximum Ridership and Efficiency
The proposed service changes create a substantial network of services that run every 15 minutes
or better all day. A few other services have very intensive service during peak hours only. We
recommend referring to these lines collectively as lhe .Primary TransR Network" or PTN. Although
the PTN works together with other services, it differs profoundly from the rest of the system in two
several key respects:
. Ridership and Productivity Potential. The 15-minute headway represents the point at which
you no longer need to consult a schedule to use the service. It also pennits transfers to be
made rapidly even without timing of connections. For these reasons, these lines have the
greatest ridership potential.
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. Magnified Effect of Small Changes. On the PTN, the agency makes its most concentrated
investment Because of this, any changes that affect transR operations or attractiveness will be
magnified. An amenity - such as a shelter - placed on the PTN will probably be used by more
people, and will therefore have a greater positive impact, than the same sheRer placed
elsewhere. On the other hand, a delay imposed on a PTN line will cost the agency more, in
tenns of both running time and ridership, than the same delay imposed on a less frequent
service.5
. Potential Synergy with Land Use. The level of service offered by the Primary TransR
Network makes R possible, even convenient, to live wRhout a car, or to have fewer cars than
adults in a household, or for a business to require fewer parking spaces. The PTN is also the
most cost-effective place to site any new transR-dependent development, in tenns of transR
costs, because a high level of service is already there. In general, the PTN requires density to
support the high level of service, and it also provides the opportunity for further denslflcation.
This chapter explores four areas of policy that apply particularly to the Primary Transit Network,
though many are also relevant to less frequent lines:
1. Protecting the PTN's Speed and Reliability
2. Marketing the PTN for Maximizing Ridership
3. Downtown Minneapolis Circulation Issues
4. Enhancing Ridership through Land Use Synergies
5. Expanding the PTN
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5 One key exception is any line that makes timed.transfer connections. If running times on these routes deteriorate to
the point that they can no longer cycle, a major increment in cost and inconvenience must be incurred to retain the
timed connections on which much of the suburban system relies.
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Metro Transit
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Volume II: Service Plan
PROTECTING SPEED AND RELIABILITY
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Most transit systems in growing communities are very gradually slowing down. Many agencies
lose 1 % or more per year in average operating speed, due to a combination of rising patronage
(which increases boarding times) and increased traffic congestion.
Traditionally, major transit agencies have set aside a portion of their expansion resources for
'headway maintenance,' which means adding buses to a line so that R has more time to complete
its cycle. This may be lhe only solution to a running time problem in the short term, but it does
nothing to arrest the downward slide in operating speeds. Instead, the transR agency simply pays
more drivers to endure ever-increasing delays, and tolerates the gradual deterioration in the speed
of the service.
When talking about transit speed, we are referring to traveltime. The buses do not have to travel
at faster speeds. The system must eliminate as much delay as possibility.
Transit operating speed is a crucial consideration for two reasons. First, time is money; the longer
R takes to complete the cycle of a line, the more it will cost to operate a given frequency. Second,
the discretionary transit rider is very sensitive to speed. Because transR must stop to pick up
passengers, it will usually be slower than cars driving on the same street. If R is too much slower, R
will lose passengers to the automobile.
For these reasons, every major transit agency needs a comprehensive speed-protection strategy.
The goal of such a strategy should be to set and maintain an average service speed policy on
every line even as congestion, ridership, and other factors increase. The policy speed, of course,
would vary with the line, but the slowest services - urban locals - are also the most crowded, so
even the loss of 1 mph in speed can have cost and ridership impacts. Ultimately, the policy speed
should be included in the street classification system of the local jurisdiction, so that a deficiency in
transR speed becomes visible as a problem just as deteriorations in traffic Level of Service do.
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Eventually, protecting the policy speed requires joint action between the transR agency and the
local jurisdiction that manages the roadway in question. In some cases, Metro TransR can take the
lead in making changes that improve speed. In other cases, the local jurisdiction that controls the
roadway would take the lead. Virtually all of these measures, however, require cooperation
between Metro Transit and the local jurisdiction in question. The following brief descriptions
identify the typical lead agency in each case.
Stop Spacing
On many major Metro Transit lines, stops are extremely close together. Often, they are located at
every intersection, which in the core cities can mean every 300 feet or less. An ideal stop spacing
is close enough that everyone in the surrounding area can walk to a bus stop, but no closer. Two
blocks, typically about 600 feet, is a common spacing standard in the industry, and even this
spacing, if applied uniformly at Metro Transit, would speed up service noticeably. However, the
maximum tolerable spacing for local lines is usually in the range of 800-1000 feet, or about three
city blocks.
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Nelson \Nygaard Consulting
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November 2, 1999
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Maximum stop spacing encourages passengers to gather in larger numbers at fewer stops. A bus
stopping for two able-bodied passengers takes very little longer than stopping for one, so stops
with more passengers mean a faster operation for everyone.
While few agencies follow Metro Transit in putting stops every block, there is some debate in the
industry about two-block vs. three-block spacing. Where the surrounding street pattern is a grid,
the case for three-block spacing goes like this: Most passengers using the service arrive on the
bus line on one of the intersecting streets. With two-block stop spacing, they are then at most one
block from the stop - in fact, they are one block from two stops, one in each direction. But of
course, a passenger doesn't need two stops. With three block spacing, everyone arriving on an
intersecting street is still at most one block from one bus stop. Since three-block spacing requires
1/3 fewer stops per mile than two-block spacing, the resuiting time savings can be substantial.
Exceptions may need to be made in dense business districts where many trips are originating
along the arterial itse~, but even there, stops should never be less than 600 feet apart
Finally, stop spacing strikes many people as so mundane that it is often treated as a detail to be
left to the operational department that installs bus stops. In fact, though, stop spacing requires a
carefully thought-out policy that is then implemented consistently throughout the system. While
this plan has not assumed running time savings due to respacing of stops, those savings could be
substantial, exceeding 10% on the busiest local corridors at the busiest times of day. Like most of
the other strategies discussed here, the greatest bEmefit will be achieved in the busiest areas, and
for this reason, the downtowns and the Primary lines should be the first priority in any stop-
respacing program.
Rear Door Alighting
Many transit agencies include in their rider education materials and onboard signs the simple
message: "Please exit out the rear door, so people can board through the front." Seniors and
disabled persons are often unwilling or unable to use the rear door, but many able bodied people
exit out the front without thinking. The typical resuit is that the rear door, which can be used only
for alighting, is idle even as passengers are still boarding at the front. This lengthens the dwell
time at the stop unnecessarily.
Of course, rear-door alighting is only relevant on busy lines and at busy stops. It would be absurd
to prohibit front-door alighting systemwide, because if nobody is boarding at the stop then rear-
door alighting saves no time. However, a more aggressive campaign encouraging rear-door
alighting, including an announcement from the driver when approaching a stop where people are
waiting to board, can make a difference in the dwell time of busy lines. As with any other attempt
to affect passenger behavior, the messages about rear-door alighting should clearly explain why
Metro Transit asks its passengers to exit out the rear, rather than simply stating it as a rule.
Protections from Traffic Delay
A wide variety of tools are available to protect transit from traffic delay. The following tools are the
most common, listed in order from lowest cost and benefit to highest cost and benefit Cost in this'
case is not necessarily money; oiten, the cost takes the form of a negative impact on single-
occupant traffic that must be tolerated to optimize transit speed.
Nelson Wygaard Consulting
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November 2, 1999
Sectors 1 and. 2 Restructuring Study
Volume \I: Service Plan
Metro Transit
. Tools to eliminate merging delay from stops. Transit often loses signnicant time yielding to a
traffic as it exits bus zones. For this reason, many agencies discourage bus pullouts, ..
preferring bulbs that extend the sidewalk out to the traffic lane. This pennits transit to stop in .
the traffic lane, and eliminates the need to merge out of the stop. Many states also have traffic
laws requiring traffic to yield to a bus exiting a zone. Some buses now have prominent flashing
yield signs on the left-rear to alert drivers of this requirement.
. Minor signal prHmption. Many of the signals along major arterials are not linked to the
signal progressions of intersecting streets. These minor signals typically occur at intersections
with minor collectors and pedestrian-activated crosswalks. While these signals are important
to local mobility, the green-time offered to the intersecting street is typically a policy minimum,
and there are few side effects from delaying it to prevent minor signals from delaying a bus.
Minor signal pre-emption can be implemented with the same technology as a garage-door
opener, where a driver simply presses a button to alert the signal of the bus's presence.
Altematively, it can use more sophisticated sensing devices based on Automatic Vehicle
Location systems. In either case, the purpose Is simply to pre-empt the green-time of the
intersecting street or crosswalk just long enough for the bus to get through. The result does
not disrupt the signal progression of the main arterial, because it simply extends the greentime
of a minor signal; the minor signal would still be red for the arterial only when the progression
dictates. Of course, the pre-emption should not inlerrupt pedestrian-activated crosswalks once
the pedestrian has been given a WALK signal, but it can delay the WALK. signal until the next
logical point in the arterial's signal progression. While this may sometimes cause running .
passengers to miss a bus, this tool is for use only on high-frequency lines where the next bus
will be coming soon. It can also be de-activated in the evenings when frequencies are poorer.
and rapid pedestrian access is a higher priority relative to operating speed.
. Queue Bypasses at Malar Signals. It is often not practical for transit to preempt signals at
the intersection of two arterials, because the intersecting arterial may have its own signal
progression that cannot be disrupted without unacceptable traffic impacts. At these
intersections, a common tool is the queue bypass. In this arrangement, the right lane
approaching the intersection is reserved for buses and right-tuming traffic. A special brief
signal phase gives a green light to this right lane only, while also giving a red light to the
crosswalk to which right-tuming traffic would otherwise yield. This pennits the right lane to
clear out and for the bus to cross the intersection prior to the parallel queued traffic on the
arterial. Queue bypasses require careful study, but are often an effective solution to moving
transit through major intersections where delays can otherwise be severe.
. Bus-only Lanes and HOV Lanes. The highest-benefit and highest-impact solution to bus
operating speed problems is the bus-only lane. The shoulder operations on several freeways
. in the region are an excellenl example of this tool in an express mode, but there are also
arterial applications. The bus-only lanes in downtown Minneapolis are not a good example, for
reasons discussed in the next section.
. Many cities eliminate parking during high-demand hours to create a busIHOV lane, though not .
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all of these are properly enforced. Full busIHOV lanes on arterials can be appropriate
especially in very high-frequency corridors. Of course, these lanes dramatically impact the
capacity of the slreet for traffic and parking, and typically require a well-establlshed sense of
urgency about the lransit speed problem - another reason for policy operating speeds on the
Primary Transit Network.
Again, most of these require leadership from the jurisdiction that controls the roadway. For this
reason, policy operating speed standards, as discussed above, are especially relevant for
identifying the need for these protections.
AMENITY AND IMAGE IMPROVEMENTS FOR THE PRIMARY NETWORK
The Primary Transit Network - including the highest-volume peak express routes, will- when
completed regionwide - carry the heaviest passenger loads at the greatest level of convenience.
This convenience should be marketed. New ridership on the PTN is much easier to accommodate
than new demands for service in low-density areas. For this reason, Metro Transit can move most
rapidly toward its goal of doubling ridership n it concentrates its most aggressive amenity and
image improvements on the Primary Network corridors, while also advertising other services in
proportion to their potential usefulness.
Primary Services should have a different "look and feel" than the rest of the system. While the
buses may be the same, many physical features of the bus stop can help make the Primary
network stand out and advertise its exceptional usefulness. These can include:
. Distinctive design for Primary Transit Network shelters, including fully enclosed shelters with
heating and air conditioning where demand warrants. Signs on shelters identifying their
location can also help passengers to orient themselves, and give the shelters more of a
"station like" feel.
. Amenities at or near shelters that give value to waiting time, including phones, newsracks, and
other fast vending opportunities.
. Distinctive signage for PTN lines, providing much more information than the current generic
bus stop and advertising "15-minute service" or "the bus will be here soonl'
. Distinctive look for schedule information on high-frequency lines.
. A new approach to the system map, using colors to emphasize frequency, as we do in the
maps in this report. Most transit maps, including Metro Transifs, make no effort to distinguish
intense services from infrequent ones. The resulting map is analogous to a road map that
doesn't distinguish between a freeway and a dirt road. Because the region is so large, it may
also be appropriate to develop subregional system maps, beginning with the Sector 1 and 2
area, where this notation can be introduced, rather than trying to map the existing system
using the new notation.
DOWNTOWN MINNEAPOLIS CIRCULATION STUDY
The Metropolitan Council and the City of Minneapolis urgently need to cooperate in the
development of a Downtown Minneapolis Circulation Study. Such a study would explore
opportunities to improve the pattern of transit lanes in the downtown, which are currently extremely
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ineffective. Despite an extensive system of transit lanes, transit moves through downtown _
Minneapolis at extremely slow speeds, and these speeds both discourage ridership and amplify .-
operating costs.
The current pattem of transit operations in downtown Minneapolis features a series of single bus.
only contraflow lanes, with stops in the lane itse~. It is impossible for buses to pass each other,
because the next lane to the left is usually a bidirectional bike lane. This arrangement requires all
buses to proceed through the lane in the same sequence. Any delay affecting any bus - such as a
wheelchair boarding - also delays all the buses behind it. A breakdown in the transit lane can
cause huge disruplions throughout the system that can take hours to rectify.
A multimodal analysis of downtown circulation would address the following general ideas, among
others:
· Create two-lane bus corridors on half of the streets currently used, retuming the other lanes to
auto use Two-lane bus-only corridors, such as Portland's transit mall, permit buses to pass
each other and therefore move through downtown more rapidly. These lanes also have a
crucial emergency-services value, because the bus passing lane can be preempted by
emergency vehicles that may have no other way of moving rapidly through a gridlocked
downtown. Retuming certain streets to pure one-way vehicle operation would also improve
traffic operations, since it would simplify tuming movements to and from those streets. Bike
lanes would be retained.
· Increase the passenger amenities on the transit streets. This becomes more cost effective if
more service is concentrated on fewer streets, so that more passengers are waiting at fewer
stops. The fully-enclosed but transparent sheiters in downtown 51. Paul are among the best
that we have encountered, and should be considered as a model, though due to passenger
volumes Minneapolis transit sheiters need to be substantially larger. The goal should be to
eliminate the need to wait outside for transit in the harsh climate extremes of the Twin Cities. .
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· Improve utilization of the "transit hubs.. These facilities, located around the periphery of
downtown, are currently used primarily as layovers. Because buses leaving them are typically
headed across downtown and out the other side of the city, the hubs are geographically
unattractive as places to board the service. This is unfortunate, because the extensive shelter
and ameniliesfor passengers at these hubs is severely underutilized, while passengers are
overcrowding many unsheltered onstreet stops. Any circulation study should look for
opportunities to use hubs as the last outbound stop (and first inbound stop) on key express
routes, so that more passengers can use them as their logical point of access to downtown.
LAND USE AND THE PTN
Land use is the responsibility of local jurisdictions, but the region as a whole has land use and
transportation goals that will be met or defeated through the cumulative effect of these local
decisions. The goal of reducing sprawl requires that better use be made of underutilized land
within the existing built area. The Primary Transit Network can be a crucial tool to that end.
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The Metropolitan Council should encourage density and other transit-friendly development types
along the PTN, and discourage them in places that are hard for transit to reach. The PTN corridors
should also carry building orientation and pedestrian accessibility requirements for all new
development, so that the development that occurs is convenient to the transit rider. In general, the
PTN should be a focal point for the entire arsenal of transit-oriented development practices, to
maximize the value of the investment that the agency has already made in these corridors.
Finally, all new transit-dependent land uses, such as social service offices, should be located on
the PTN as a matter of policy. Frequently, social service agencies locate on the cheapest available
land, which usually has poor access. While this may optimize costs for the agency in question, it .
forces the transit agency to run an inefficient service to reach a poorly sited facility. In effect, one
agency is simply dumping its costs on another.
EXPANDING THE PTN
A regional Primary Transit Network should provide not just for intensification of land use around
existing PTN services. It should also promote the development of new PTN corridors contingent
on land use plans that will provide the ridership needed to support primary service. This element of
the PTN strategy is critical for extending Primary service into suburban areas, where the current
densities and development patterns almost never support high-frequency service by themselves.
A regionally defined PTN policy should identify three types of Primary corridor..
1. Existing PTN. These corridors already have the densities needed to support PTN service,
though further intensification is encouraged. Barring a major loss of resources, the Existing
PTN will not be scaled back in the future. This commitment - which can be amplWied by major
capital investments - can help to give the PTN some of the permanence that is currently
associated with Light Rail, and can therefore enable the PTN to stimulate developer
confidence in transit-oriented development. Light Rail is an important part of the PTN, but the
region cannot meet its land use goals if it densifies only in Light Rail station areas.
2. Planned PTN. These corridors have the densities to support PTN service, and they are Metro
Transit's next priorities for upgrading to PTN levels of service as resources permit. For
example, all of the corridors that have 15 minute service in the 25% Growth scenario, but not in
the No Growth Scenario, would become part of the Planned PTN W only the No Growth
scenario is implemented.
3. Candidate PTN. These corridors have PTN-supportive densities that are zoned but not
sufficiently built. They may also have problems of building orientation that need to be
improved over time. Jurisdictions willing to support the PTN - especially suburban cities -
would enter into an agreement with Metro Transit that:
. IF the local jurisdiction actually builds adequate densities and building orientation, AND
· IF the jurisdiction controlling the roadway supports including transit speed protection in its
street classification policies,
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THEN the Candidate PTN corridors will be upgraded to Planned, and implemented as Metro _
Transit's resources permit. WI'
The process of expanding the PTN provides a way of breaking out of the chicken-and-egg cycle
thatfrustrates transit-oriented development in suburban areas. Typically, existing transR in these
areas is poor, and developers want to see the transit in place, preferably with some permanence,
before they will develop in a transit-dependent way. By establishing agreements between cities
and the Metropolitan Council, and by making good on those agreements by upgrading other
corridors to PTN status as resources permR, the Council can help to encourage the development of
new high-ridership corridors where none exist today.
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TCAAP
FRAMEWORK PLAN
Concept Plan for Reuse of the
Twin Cities Army Ammunition Plant
Arden Hills, Minnesota
Prepared For
~ :.J The City of Arden Hills
LARKIN
HOFFMAN
D-\L'r &
LINDGRE~
Al!cm~~;llL<l""
By
CAMI~OS
"=SEH
:o.ou..r-".............""C..~~..rlCl:\NJMlO.u<a~...,...11CIV'II
Executive Summary
The Twin Cities Army Ammunition Plant (TCAAP) has been in operation since 1942, producing conventional
ammunition and weapons components. The sole remaining on-site contractor is Alliant Techsystems, Inc., which
manufactures explosives that are assembled into shells and other weapons elsewhere.
lu 1994, the US. Army Industrial Operations Conunand (JOe) annouuced its intention to declare TCAAP as excess
federal property. Although uo formal declaration of excess has yet been issued (as of February 1996), it became
clear that, within the next few years, some or all of the property would become available for other uses.
The City of Arden Hills began taking steps to respond to the auticipated excessing of the property by soliciting
statements of qualifications from planning and engineering consultants nationwide to assist in preparing a concept
plan for reuse of TCAAP. As the consultant selection process moved toward completion, it became clear that the
City needed not only technical support but assistance in navigating the increasingly complex political landscape
surrounding TCAAP:
> Congressman Bruce Vento, who represents Minnesota's 4th Cougressional District, appointed the TCAAP
Reutilization Committee in the sununer of 1994. This group was charged with developing a conununity-based
reuse plan for the site. The Conunittee's roster incuded an official representative from Arden Hills, in which
TCAAP is located, as well as represeutatives from the three adjacent communities (Shoreview, New Brighton
and Mounds View). The Committee also contained representation from Ramsey County, the State of
Minnesota, organized labor, environmental groups and other local and regional interest groups.
> A grassroots organization called the Arsenal Clean-up and Conversion Project, a spinoff of Minnesota Jobs
with Peace, began holding public brainstorming sessions to help determine the future ofTCAAP. These
sessions continued throughout the spring and summer of 1995 and the information they gathered became input
to the Reutilization Committee.
> lu the spring of 1995, the Prairie Island band of the Mdewakanton Sioux expressed an interest in the TCAAP
site, which, under federal property disposal rules, they might claim through the Bureau of Indian Affairs in the
Department of the Interior. At first, the band stated that they merely wanted another site on which to build
housing, so that band members could relocate away from the Prairie Island Nuclear Power Plant adjacent to
their home reservation. Less than a week later, though, it was revealed that they might also put a gaming facility
on the site.
On April 19, 1995, the City awarded the consulting contract to a team comprised of Camiros, Ltd.; SEH (Short-Eliot
Hendrickson), Inc.; and Larking Hoffman Daly Lindgren, Ltd. These three team members brought all the necessary
expertise to bear on this project: planning and fiscal analysis; engineering and envirOIunental analysis; and legal and
lobbying support. (See Chapter J, Context, for background on Arden Hills, TCAAP and the federal excess-property
regulations.)
Camiros, Ltd.lSEH, Inc./ LHDL, Ltd.
TeAAP Framework Plan
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In addition, the City and the consulting team agreed to a very agressive plan completion schedule that would deliver
a plan recommendation to the Arden Hills City Council no later than September I, 1995. This gave everyone
roughly four months to review and digest site information that was already available, establish a vision and goals for
its reuse, and develop a reuse plan that could respond to political and market forces likely to change during the life
of the plan.
The TCAAP Framework Plan was prepared under the direction of the Arden Hills TCAAP Reuse Task Force, a 14-
member group comprised ofrepresentatives from the Plalming Commission and other City committees. This group
fIrst met on May 3, 1995 and got down to work inunediately. Its first month of work was devoted ahnost
exclusively to gaining a better understanding of the site itself: land use on and around it, infrastructure and ttaffic
conditions, natural resource considerations and environmental contamination issues. (See Chapter II, Site
Overview.)
The Task Force met an average of three times per month and held four public meetings during the course of its
intense four-month effort. In June, the Task Force developed a vision for reuse of TCAAP and a series of goals for
the plan, as well as a set of criteria by which members (arLd the public) could judge any given plan's success or
failure. (See Chapter III, Goals and Evaluation Criteria.) By mid-July, the Arden Hills Task Force was able to
present four test concepts to the Reutilization Committee (Chapter IV, Concept Plan Development). In late August,
the Task Force adopted a refmed plan for recommendation to the Arden Hills City Council (Chapter V, Plan
Refinement and Preferred Reuse Plan).
One of the major issues confronting the City was building support for a single reuse plan, so as to avoid confusion
and conflict at the federal level when the property becom,,. available. In September 1995, the TCAAP Reutilization
Committee (Vento's group) essentially endorsed the Ardeo Hills plan, with a few minor modifications. It adopted a
slightly re-modified version of the plan in December, shortly before disbanding.
Although the Vento plan has yet to be returned to the Arden Hills Task Force for review, the plans accepted by the
two groups are so similar as to represent a general consensus that allows the 'Ilocal community'l to speak with a
single voice in Washington.
Principal Components of the TCMP Reuse Plan (Figure V-25)
The foundation of the TCAAP Framework Plan is a large open-space preserve that will protect and allow public
enjoyment of the site's considerable natural assets. Among these assets are Marsden Lake and its related network of
wetlands; a series of rare prairie pothole wetlands; SunfIsh Lake; the Rice Creek corridor; and a kame, a glacial
formation rare in the Twin Cities region and the source of the name of the City of Mounds View. The preserve
contains nesting sites and other habitat for the threatened Blanding's turtle and prairie remnants with threatened
Illinois tree tick-trefoil. The preserve also encompasses more than half of the contamination sites, which may help
the local community to gain greater control over the pacing and extent of eventual clean-up.
Iu addition to this spectacular natural area, three other sizable public open spaces have been set aside:
. a city park, just north of the Army Reserve Center along Lexington Avenue;
. a ballfield complex to be operated jointly by Arden Hills, Shoreview, Mounds View and New Brighton; and
.. an area designated for "active or passive recreation", which may be put to any of a large variety of uses,
depending on demand and available resources at the time of development
The remainder of the site would be divided into five principal use areas:
.
A govemment center that would encompass Sunfish Lake and the City Park, as well as a civic campus and
interpretive center for the open-space preserve;
A village center that would include a small retail center, a school, semi-public facilities (e.g., churcbes) and
some mid-to-high-density housing;
.
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TCAAP Framework Plan
Page 2
Executive Summary
~ Two sizable residential communities;
~ Two large commercial/office/industrial areas; and
. An institutional site, part of which is now occupied by a MnDOT maintenance facility and the remainder of
which will hold a joint City/CountylNational Guard public works facility.
Next Steps (Chapter VI)
Although the Army has refuted its earlier intent to excess portions of TCAAP, there seems to be little doubt that the
site will eventually return to civilian use. As a result, the City of Arden Hills must continue to plan for its future in a
variety of ways.
Immediate actions should include:
. amending the City's Comprehensive Plan to show the newly-approved land-use pattern for TCAAP;
. adopting two new zoning districts, the OS Open Space and AR Arsenal Redevelopment, and use them to protect
TCAAP from precipitous or arbitrary development;
. pursuing special federal legislation that will require TCAAP to be excessed and redeveloped in accordance with
the rules contained in the Base Realiglunent and Closure (BRAe) Act, which favors local control over planning
and development for reuse;
. continuing to pursue outside funding for more detailed planning and for general assistance in dealing with the
excessing process, such as funding for the joint public works facility; aud
. remaining in constant communication with the City's legislative and Congressional delegations, AMCCOM (US
Army), Alliant Techsystems. US General Services Administration, and other players in the TCAAP drama.
Longer-term actions include undertaking more detailed plans for selected areas within TCAAP, such as the parks
and open spaces and the village center, and preparing development guidelines governing the nature and quality of
redevelopment projects. Other actions may include working with Alliant Techsystems to develop a phased plan for
consolidating, converting or eliminating its use of the site.
Camiros, Ltd.lSEB, Inc.l LBDL, Ltd.
TCAAP Framework Plan
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Executive Summary
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TABLE OF CONTENTS
Executive Summary
I
I. Site Context
A. Introduction to TCAAP
Figure 1 Location Maps
B. Arden Hills
C. Description and History of TCAAP
Figure 2 Occupied Buildings and Areas
D_ Local Obligations
I. Federal Excess Property Regulations
2. Minnesota Land PIanning Regulations
E. Other Participants in the TCAAP Planning Process
F. Non-Local Claims
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II. Site Overview
A. Local Land Use and Zouing
I. Existing Arden Hills Comprehensive Plan
2. Existing Arden Hills Zoning
Figure 3 Existing Comprehensive Plan
Figure 4 Existing Zoning
3. Surrounding Land Uses
Figure 5 Land Uses Surrounding TCAAP
B. Existing Infrastructure
I. Site History
2. Sanitary Sewer System
3. Water Systems
Figure 6 Existing Utilities
4. Public Utilities
5. Transportation System
Figure 7 Existing Traffic Conditions
C. Existing Natural and Recreational Resources
1. Natural Characteristics of the Site
Figure 8 Developed and Disturbed Areas as of 1995
Figure 9 Natural Inventory
2. Ecological Mitigation and Habitat Restoration
3. Recreational Opportunities on TCAAP
Figure 10 Open Space Islands and Linkages
D. Site Contamination and Remediation
I. Background
2. Existing Conditions
Figure 11 Remediation Sites
3. Schedule of Remediation
E. Market Conditions
I. The Minneapolis/St. Paul Metro Area Economy
2. Development Trends: Regionwide, Ramsey County and TCAAP
3. General Assessment of the Arden HillslTCAAP Market
11- 1
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II. 2
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III. Goals and Evaluation Criteria .-
A. Goals for Reuse of TCAAP I1I- I
Land Use I1I- I -
Transportation and Infrastructure III- 2
Open Space and Recreation I1I- 2
Economic Development I1I- 3
Conununity Character and Development Quality I1I- 3 -
FiscallFinancial I1I- 3
Long-Term Feasibility I1I- 4
B. Criteria for Evaluating Concept Plans I1I- 5 -
Land Use and Conununity Character I1I- 5
Transportation and Infrastructure III- 5
Open Space and Recreation III- 6
Economic Development III- 6 I
Fiscal and Financial Impacts III- 6
C. Correlation of Goals and Criteria III- 7
IV. Concept Plan Development I
A. Planning Framework N-I
1. Transportatiou System N-I -
2. Infrastructure and Utilities N- 2
3. Open Space Preservation IV- 2
4. Assessment of Contaminated Areas IV- 3
Figure /2 Initial Open-Space Framework IV- 4 I
B. Coucept Plans # I - #4 IV- 5
Concept Plan # I Office/Industrial IV- 5
Concept Plan #2 Town Center IV- 5 ..
Figure 13 Concept Plan #1 IV- 6
Figure /4 Concept Plan #2 IV- 7
Concept Plan #3 Open Space and Recreation IV- 8
Concept Plan #4 Residential IV- 8 I
Summary of Land Uses IV- 8
Figure 15 Concept Plan #3 IV- 9
Figure 16 Concept Plan #4 N-IO I
Figure 17 Sununary of Land Uses IV-ll
C. Evaluations of Concept Plans #1 - #4 IV-12
Land Use and Conununity Character N-12
Transportation and Infrastructure N-15 I
Open Space and Recreation IV-18
Economic Development N-19
Fiscal and Financial Impacts N-21 I
D. Feedback and Input N-24
Figure 18 Concept Plan #5 All Open Space IV-25
Figure /9 Revised Open-Space Framework IV-26
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V. Plan Refinement and Preferred Reuse Plan
A. Concept Plans #6a, 6b, 6c and 6d V-I -
Figure 20 Refined Plan #6a V-2
Figure 21 Refined Plan #6b V-3
Figure 22 Refined Plan #6c V-5
B. Evaluation ofRefmed Plan #6b V-6 .-
C. Arden Hills Task Force Preferred Plan #6d V-12
Figure 23 Preferred Plan #6d V-13
Figure 24 Summary of Land Uses. Plan #6d V-14 I
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D. Development of Accepted Plan
Figure 25 Accepted Plan
V-IS
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VI. Next Steps
A. Comprehensive Plan and Zoning Changes
B. Potential Change in TCAAP's Status as a Military Installation
C. Continued Planning for the Reuse of TCAAP
D. Fund-Raising Strategies and Efforts
VI- I
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Appendices
A. Arden Hills TCAAP Reuse Task Force Roster and Meeting
Schedule, including public meetings and copies of sign-in sheets
B. Press Coverage
C. Minutes of Meetings of the TCAAP Reutilization Committee
("the Vento Committee")
D. Interim Report of the Arsenal Clean-up and Conversion Project (ACCP)
E. GSA Property Disposal Regulations
F. State Land Planning Regulations
G. City Request for Assistance from the Economic Development
Administration, May 1995
H. Request Submitted by the Prairie Island Mdewakanton Sioux to the
Bureau ofIndian Affairs, U.S. Department of the Interior
I. Arsenals and Depots Defmed as Bases, in Urban Areas
J. Miscellaneous Related Correspondence
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I. Context
This chapter of the report sets the stage for the Arden Hills TCAAP Framework Plan. It summarizes the situation
that led to the City's planning effort, describes the City of Arden Hills and the history and use ofTCAAP, and
introduces the major actors.
A. Introduction
In 1994, the U.S. Army Indnstrial Operations Command (roC) announced its intention to declare the Twin Cities
Army Ammunition Plant (TCAAP) as excess federal property. Although no formal declaration of excess was issued
at this time, it became clear that, within the next few years, the property would become available for other uses.
TCAAP has been in operation since 1942, producing conventional ammunition and weapons components. The sole
remaining on-site contractor is Alliant Techsystems, Inc., which manufactures explosives that are assembled into
shells and other weapons elsewhere.
Congressman Bruce Vento, who represents Minnesota's 4th Congressional District, appointed the TCAAP
Reutilization Committee in the summer of 1994. This group was charged with developing a community-based reuse
plan for the site. The Committee's roster included an official representative from Arden Hills, in which TCAAP is
located, as well as representatives from the three adjacent communities (Shoreview, New Brighton and Mounds
View). The Committee also contained representation from organized labor, environmental groups, Ramsey County,
the State of Minnesota, and other local and regional interest groups.
The Reutilization Committee began meeting in the fall of 1994. At about the same time, the City of Arden Hills
began exploring the feasibility of hiring planning experts to assist it in dealing with the challenge presented by
TCAAP.
By April 1995, after meeting once a month for six months, the Reutilization Committee had gathered a large amount
of information but had no more than a general feel for where lines might be drawn on a map to show different kinds
of proposed reuse areas. Two proposals were rejected outright: one to devote the entire site to open space, the other
to devote about half the site to open space and leave the other half "as is", in use by AlliantTechsystems.
Also in the spring of 1995, a grassroots organization called the Arsenal Clean-up and Conversion Project, a spinoff
of Minnesota Jobs With Peace, began holding public brainstorming sessions to help determine the future of
TCAAP. These sessions continued throughout the summer and the information they gathered became input to the
Reutilization Committee.
And at about the same time, the Prairie Island band of the Mdewakanton Sioux expressed an interest in the TCAAP
site. At fIrst, they stated that they merely wanted another site on which to build housing, so that band members
could relocate away from the Prairie Island Nuclear Power Plant adjacent to their home reservation. Less than a
week later, though, it was revealed that they might also put a gaming facility on the site as well.
Camiros, Ltd./SEH, /nc./UlDL, Ltd.
TeMP Framework Plan
Pagel
Chapter 1
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As interest in TCAAP accelerated, officials and residents of the City of Ardeu Hills grew more and more uueasy. In
mid-April, they interviewed and hired a consulting team comprised ofCamiros, Ltd., SEH (Short-Eliot-
Hendrickson), Inc., and Larkin Hoffman Daly Lindgren to assist the City in preparing a reuse plan for TCAAP and
dealing with the many interests involved in trying to detennine its future.
This report represents the cuhnination of Phase I of this work. The focus of this phase was to develop a TCAAP
reuse plan specifically for the City, taking into account issues that the Reutilization Committee would not deal with,
such as community character, fiscal responsibility and fmancial challenges.
The plan was prepared under the direction of the Arden Hills TCAAP Reuse Task Force, a 14-member group
comprised of representatives from the Planning Commission and all other City committees. This group met at least
three times per month and held four public meetings. By mid-July, the Arden Hills Task Force was able to present
four test concepts to the Reutilization Committee. In late Augnst, the Task Force adopted a refmed plan for
recommendation to the Arden Hills City Council.
One of the major issues confronting the City was building support for a single reuse plan, so as to avoid confusion
and conflict at the federal level when the property becomes available. In September 1995, the TCAAP Reutilization
Committee (Vento's group) essentially endorsed the Arden Hills plan, with a few minor modifications. This will
enable the local conununity -- whether that means Arden Hills or the broader conununity -- to approacb the Army
and the General Services Administration speaking with a single voice. This consensus will give the local community
a much strouger position in dealing with the federal government and other potential users of the property.
B. Arden Hills
The City of Arden Hills is located in the northwestern portion of Rarnsey County, Minnesota (Figure f). As of
1995, its population was estimated to be 9,426. It occupies a land area of about 6,200 acres, or roughly 9.7 square
miles. TCAAP occupies 2,370 acres, about 38% of the total land area. Most of the community, including TCAAP,
is located within the boundaries of the Mounds View School District (621), the remainder in the Roseville School
District.
Arden Hills is primarily a residential community. However, it is also home to several corporate main and branch
offices, including Land O'Lakes, Cardiac PacemakerslEvident and Control Data. These uses and other
office/industrial uses are clustered around major roadways, particularly 1-694, which bisects the community from
east to west. Other major roads in the community include I-35W, which runs along its western edge; US 10, which
runs southeast-to-northwest in the center of the city; CSAH 96, which runs east-west at the southern boundary of
TCAAP; and Lexington and Hamline Avenues, which follow north-south alignments and connect Arden Hills to
Roseville and St. Paul to the south.
Arden Hills is largely built out. One significant office/industrial parcel remains in the northeast quadrant ofI-35W
and 1-694, and some inftll space is available in both office and residential areas. However, the only significant
remaining development property is TCAAP. In part this is due to the character of the land: Arden Hills contains
several lakes and a large number of ancillary wetlands. These areas are protected from ftlling and development by
state and local statutes.
The City has traditionally operated on a fairly limited budget. Budgetary expenditures for FY 1994 totaled about
$1.8 million, an amount substantially less than is typical in this region for cities of comparable size. A rarity among
small conununities, Arden Hills is a net contributor to the Metropolitan Fiscal Disparities Fund and receives no
operating support from this fund.
The City has a permanent staff of 20. Police protection is provided uuder a contract with the Ramsey County
Sheriffs Office. Fire protection is provided by the independent Lake Johanna Volunteer Fire District.
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The City operates under a strong mayor/administrator form of government. The City Council is made up of four
members plus the mayor, all of wbom are elected at-large.
Both the present city hall and public works facility are less than adequate to serve the needs of the community over
the long term. The community has debated investing in a new city hall for a number of years; these discussions have
been prolonged by uncertainties about TCAAP's future, which would be the most logical place for a new facility.
On-going discussions have also occurred among the City, Ramsey County and the Minnesota National Guard
regarding the possibility of constructing a joint maintenance facility somewhere ou the TCAAP property.
C. Description and History of TeAAP
The Twin Cities Army Ammunition Plan (TCAAP) occupies 2,370 acres, or nearly four square miles, in the
northwestern portion of Ramsey Couuty, Minnesota. It lies entirely within the municipal boundary of the City of
Arden Hills approximately ten highway miles from Downtown St. Paul and eleven higbway miles from Downtown
Minneapolis.
The site is owned by the federal government -- specifically, the U.S. Army Ammunitions and Chemicals Conunand
(AMCCOM) within the Department of Defense. The property is managed and operated by Alliant Techsystems,
Inc., the sole remaining on-site defense contractor.
Although the entire property drains eventually into Rice Creek, TCAAP contains several land formations. The
southern and western portions of the site are dominated by relatively flat land that drains direcily into Rice Creek,
which crosses TCAAP's northwest corner. The center of the site is dominated by a kame, a glacial sand deposit that
is the highest point in Ramsey County. To the northeast and east lie extensive weilands, including Marsden and
Sunfish Lakes.
Site acquisition by the federal government began in 1941. The site was assembled from three dozen small farm
parcels, each 40 acres or less in size. To this day, the remains offannsteads may be seen in lighily used portions of
the site.
Groundbreaking took place on August 28,1941, and within ninety days most of the major wood-frame buildings
were either constructed or well underway. Production of .30- and .50-caliber ammunition started in February 1942
and continued for 42 consecutive months (through August 1945). The workforce reached its historic peak of about
26,000 in July 1943. Federal Cartridge Corporation (now Federal Cartridge Company) was the prime operating
contractor.
The facility was placed in stand-by status late in 1945. It was reactivated in 1950 to support the Korean Conflict and
continued to produce ammunition until late 1957, when it was again placed in stand-by status. It was reactivated a
second time during the Vietnam War and remained in operation until the end of 1976. In 22 years of production,
Federal Cartridge produced more than 16.5 billion accepted rounds of small-arms ammunition for the U.s.
Government.
Several years ago, two small parcels at the northwest comer of the site were excessed. Both are now occupied by
state agencies: Sixteen acres on County Road I are used by MnDOT, while another eighteen acres adjacent to 1-35W
are used by the Department of Public Safety.
Environmental studies were initiated in 1978. The Army began by searching records of past operations to determine
if a significant potential hazard existed for contamination to migrate from the installation. In 1978, the U.S. Army
Toxic and Hazardous Materials Agency (USA THAMA) Report #129 indicated that any contamination would be
contained on the site. However, in 1981, solvents were discovered in off-site groundwater wells, including
municipal wells supplying the City of New Brighton.
Since that time, the Army, the U.S. Environmental Protection Agency (EP A), and the Minnesota Pollution Control
Agency (MPCA) have worked jointly to determine what contaminants are involved, where they are located and how
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INSERT FIGURE 2 Buildings and areas now occupied -- include safety arcs
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extensively, and the extent of the off-site groundwater contamination plume. As ofmid-1995, fourteen (14)
contaminant disposal sites have been identified. The main contaminants are solvents, primarily trichloroethylene
(TCE) and poly-cWorinated biphenyls (PCBS), and heavy metals.
In 1982, the New Brighton! Arden Hills Superfund Site, which consists of a 25-square-mile area that includes both
TCAAP and the groundwater plume, was added to the National Priorities ("Superfund") List. In 1983, funding
became available to start the cleanup work.
The Environmental Restoration Program at TCAAP marked a milestone in November 1991 when the Remedial
Investigation Phase of work was completed. This is the phase in which studies are conducted to determine what the
contaminants are, where the sources of contamination are located, where the contamination plumes are headed, and
what the risks are to the environment and public health. At the date of this report, the next phase of work, the Draft
Remedial Action Plan, is being finalized.
Although the situation is no longer clear, the U.S. Anny has been expected to declare that the portion ofTCAAP not
being used by Alliant Techsystems is excess to its operations. The declaration of excess would exclude Alliant
Techsystems's facilities and protective safety arcs, which occupy about 40-45% of the site.
Current Occupancy and Use
Most ofTCAAP is in caretaker status. However, Alliant Techsystems, Inc., formerly a division of Honeywell, Inc.,
still operates on the site manufacturing explosive components and fuses. The U.S. Anny Reserve occupies a 25-acre
site at the southeastern comer of TCAAP. The Minnesota National Guard occupies an 18-acre site in the south.
central portion of TCAAP, immediately west of Harnline Avenue. Other on-site areas and buildings are leased to
local entities for storage. Known usage is shown in Figure 2.
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D. Local Obligations
Under federal, state and regional law , the City of Arden Hills must fulfill several obligations connected with
planning for the reuse ofTCAAP. The applicable laws are discussed below and the City's role is briefly described
for each.
1. Federal Excess Property Regulations
Unlike many of the military installations closing nationwide, TCAAP is not considered to be a "base". Therefore, it
is not being closed under the procedures prescribed in the Base Realigmnent and Closure ACT (BRAe) as amended.
The BRAC legislation set up a new procedure for disposal of military property by requiring that the service branch
involved in the property disposal work directly with the local community to develop a locally acceptable reuse plan
for the site. Other provisions of this legislation give primacy to this local plan and give the local community greater
control over sale and development of the property.
TCAAP is slated to pass through the more traditional federal property disposal procedures that pass the property
from the service branch to the General Services Administration (GSA) and eventually to public sale. GSA disposals
follow a rigid path from the service branch to the remainder of the Department of Defense, then through the federal
government, then to lower units of government and [mally to the general public. These procedures are summarized
here. The full GSA regulations appear in the Appendix to this report.
TCAAP is currently owned by the U.S. Army. The Army has stated its intention to declare TCAAP as "excess
property". Excess property is any property under the ownership and control of a federal agency that is not required
to carry out the mission of that agency.
Once the Army formally determines that TCAAP is excess property, it will notify the U.S. Army Corps of
Engineers. The Corps will conduct an inquiry within the Department of Defense (DaD) to determine whether any
other service branch division has a use for all or part of TCAAP.
Any portion of TCAAP that is not retained by a DaD entity will be turned over to the GSA, as the landlord for the
Federal Government, to determine whether any other Federal agency has a need for TCAAP or whether it is surplus
property.
The GSA will send a notice to all federal agencies with land-holding missions, advising them of the availability of
this excess property. These agencies have 30 days to communicate their interest in TCAAP to GSA. If a tentative
need is expressed, the requesting agency may bave an additional 30 days to determine whether the need is fIrm.
If no agency expresses an interest in acquiring TCAAP within this 60-day period, the property will be declared
"surplus" by the GSA. It can then be disposed of outside the federal government.
The GSA must next communicate the availability ofTCAAP to those federal agencies statutorily authorized to
claim property for a state or local govemment or for a non-profit entity. These agencies include:
Department of Education -- educational purposes;
Department of Health and Human Services -- public health, shelters for homeless
Department of the Interior -- historic monuments, wildlife conservation, Indian affairs
Department of TranspOrlation -- higbways, airports, transit facilities
Department of Justice -- correctional facilities
Federal agencies, on behalf of their authorized nominees, will have 20 days to express an interest in TCAAP to the
GSA. Following this initial notice, the agency will have 25 days to make a formal application to the GSA for the
transfer of the surplus property.
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When the GSA receives a request for transfer of surplus property, it must "consider" the current Comprebensive
Plan and Zoning for the City to ensure "compatibility". IfTCAAP is sold outside the federal government, the
ultimate user must comply with Arden Hills plauning and zoning standards. The GSA must also consider the
capacity of the nominee to [mance and operate the property for the purpose stated in the application.
The Departments of Health and Human Services and Housing and Urban Development (HUD) are required by the
McKinney Act to periodically survey all Federal agencies to identify land that is presently or soon to be declared
excess or surplus. A determination must be made for each identified parcel as to whether the property is suitable for
use as a homeless shelter. If a property is suitable, HUD may file an application to transfer the property to a
nominee seeking to operate a sbelter for the homeless. (Note: A statement that the property encompassing the
TCAAP residences is "unsuitable" for use as a homeless shelter has been published in the Federal Register since
about 1991.)
If no authorized claim is made by any agency on bebalf of a nominee, the GSA will have to attempt to dispose of
TCAAP by advertised sale or negotiated sale. In either instance, the GSA is obligated to seek fair market value for
the land. Ordinarily, a public bid process is required to dispose of surplus land, and the land is sold to the interest
making the highest bid.
Negotiated sales are allowed only if:
~ bid prices are umeasonable,
. the character or condition of the property makes it impractical to advertise for bids, or
. when satisfactory terms can be obtained through a sale to a state, regional, county or local government.
2. Minnesota Land Planning Regulations
The State of Minnesota has imposed planning regulations and guidelines both generally, state-wide, and
specifically, through the Metropolitan Council within the Twin Cities Metropolitan Region. All of these regulations
will have some effect on reuse plauning for TCAAP.
Minnesota Land Planning Act
In Minnesota, a comprehensive municipal plan typically includes policy goals, standards, and maps that incorporate
a land use plan, community facilities plan and transportation plan. This plan document provides the foundation for
all other local land-use regulatory efforts, including adoption of a zoning ordinance and subdivision code. The City
of Arden Hills has had a comprehensive plan since the I 960s. The existing plan will have to be amended to reflect
proposed changes in the future use of TCAAP.
The Planning Commission has statutory responsibility, via delegation by the City Council, to create and the Plan as
needed. A proposed Plan or related amendments may not be acted upon by the City Council until it has received the
recommendation of the Plauning Commission (or until 60 days have elapsed from the date an amendment was
submitted by the City Council for Plauning Commission review).
The City can adopt an interim development moratorium to protect its planning process at any time. The initial
moratorium can last for up to 12 months and may be extended for additional periods up to a total ofadditional18
months.
Once the plan has been adopted, the Plauning Commission may prepare and recommend for adoption by the City
Council implementation measures relating to the Plan, including zoning regulations, subdivision regulations, an
official map, a program for coordination of normal public improvements and services, urban renewal and/or a
capital improvements program.
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Metropolitan Land Planning Act
Under the Metropolitan Land Planning Act of 1976, the Metropolitan Council is required to review Arden Hills's
Reuse Plan for TCAAP to ensure its consistency with metropolitan system plans for sewer and water service, transit,
parks and open space, and affordable housing. The plan must receive approval from the Metropolitan Council
before the City Council implements the TCAAP Reuse Plan through zoning. The City's zoning provisions must then
be made consistent with the approved TCAAP Reuse Plan.
Metropolitan Significance Rules
TCAAP is one of three or four intact remaining parcels of land within the Metropolitan Urban Services Area
(MUSA) that might qualify for designation as "regionally significant". Such a designation would be based on the
parcel's location, size, and ultimate development potential. The last site declared to have regional significance is the
site now occupied by the Mall of America in Bloomington.
The Metropolitan Council bas the authority to initiate a process to determine whether a land development project is
of such magnitude that it has regional significance -- that is, it cause regional impacts on metropolitan systems such
as transit service, highways, sewer and water service and parks and open space.
The Met Council can initiate such a review in response to a request from any of the following:
An affected local governmental unit;
A petition signed by 5,000 Twin City residents; or
A letter from a state agency.
If the Metropolitan Council determines that a project may have metropolitan significance, it can order that the
project be suspended pending resolution of the review process.
Formal review of metropolitan significance may consist of mediation, a contested case proceeding, a public bearing
or some version thereof. Ultimately, the matter will be reviewed by the full Council to determine the outcome of the
question.
If the Metropolitan Council fmds a project to be of metropolitan significance because it affects regional systems, the
Council can order that the project be suspended for up to one year, unless disputed issues can be resolved in the
interim.
If TCAAP is excessed in pieces, and subsequently developed in stages, it may fail most metropolitan significance
tests. However, the sheer size of the property -- nearly four square miles .. suggests that a fmding of metropolitan
significance would not be out of the question.
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E. Other Participants in the TeAAP Planning Process
As mentioned in the introduction to this chapter (Section IA), The City of Arden Hills has not been alone in
planning for the reuse ofTCAAP. Two other groups bave been involved in planning efforts -- one to produce its
own plan, the other to gather information relevant to planning.
The TCAAP Reutilization Committee ("the Committee") was convened in the fall of 1994 by Congressman Bruce
Vento (D-MN). The Committee consisted of seventeen representatives:
one official representative from each of the four municipalities (Arden Hills, Shoreview,
New Brighton and Mounds View);
one representative oflocal citizens in each of the four municipalities;
one from the bnsiness community;
one from economic readjustment interests;
one from among homeless providers;
one from organized labor;
one from among environmental interests;
one from School District #621;
one from the Minnesota National Guard;
one from the State of Minnesota (Office of Planning);
one from Ramsey County; and
one each from the offices of Mr. Vento and U.s. Senator Paul Wellstone.
Advising this group was an informal panel of representatives from the Department of Defense Office of Economic
Adjustment, the General Services Administration, AMCCOM, the US EP A, the Minnesota Pollution Control
Agency, Alliant TechSystems and, eventually, the City of Arden Hills. Other advisors included representatives of
the MN Department of Natural Resources, the MN Amateur Athletics Commission, and many other groups.
The Committee met an average of once a month for a year. With no professional planning staff and no resources,
the ability of this group to produce a thorough plan was somewhat limited. However, they did take in a large
amount of information and heard proposals from a variety of existing and potential users: Alliant TechSystems, the
National Guard, Ramsey County, the MN Amateur Athletics Commission, the American Indian Housing
Corporation (not affiliated with the Prairie Island Mdewakanton Sioux), and the City of Arden Hills. This fact-
fmding effort was instrumental in informing the entire planning process for everyone involved.
By late spring, the Committee had rejected two reuse proposals. One would have set aside the entire site as open
space. This was rejected because of the continued presence of Alliant Tech, the lack of an immediately willing and
able sponsor, and a recognition that this would meet only one community need without addressing others. The
second proposal would have essentially codified the status quo by setting aside all land that does not lie beneath
Alliant Tech's safety arcs as open space, with Alliant Tech continuing to operate as it does today. This too failed,
primarily because the Committee had just begun receiving meaningful community input.
At its fmal meeting, on December 16, the Committee endorsed the plan submitted by the City of Arden Hills, with a
few minor changes. This decision gives the plan greater credibility and legitimacy and will allow the community to
approach Washington with a single, united voice. (See Section V, "Plan Refmement and Preferred Reuse Plan.")
The Committee roster and its fmal report are included in the appendix to this report.
The Arsenal Clean-up and Conversion Project (ACCP) grew out of efforts by Minnesota Jobs With Peace to track
disposal ofTCAAP. With the help of interns and faculty from the University of Minnesota, ACCP held a series of
public brainstorming sessions to gather additional information for the Vento Committee. The sessions were held in
and around Arden Hills. Some were open to anyone, while others targeted specific groups -- businesspersons, the
elderly, low-income households, etc.
ACCP issued a preliminary report in early July, which they presented at a meeting of the Arden Hills Task Force.
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The group's fmal report did not differ significantly in its major fmdings:
. Planning for TCAAP should incorporate a truly long-range vision, with attention to the impact on future
generations.
. At least some open space should be preserved on TCAAP. This open space sbould be available for public use,
enjoyment and recreation for those of all ages, while preserving the site's natural amenities. Site reuse should be
consistent with natural features.
.. Greater diversity in race, income, age groups and culture is needed in the connnunities surrounding TeAAP.
Creating a variety of housing and job options on TCAAP would help to promote such diversity.
. Land use planning and urban design should pursue a reduction in automobile dependency and encourage
alternate transportation modes such as bicycling and walking. Mixed-use and higher-density development
should be encouraged. This would also provide more opportunities for people to work close to home. A light-
rail transit hub could be developed on this site as well.
. Community gathering places sbould be created and might include a community center, town center
("downtown"), school and other kinds of spaces.
. Opportunities for learning should be created and might include a nature interpretive center, historical
interpretive center, lifelong learning center, job-training center, etc.
. Future uses should be non-polluting.
. Existing structures and infrastructure should be reused where possible to conserve resources.
ACCP also found a substantial need for affordable housing and higher-wage jobs within the four-city area. It
concluded that the northern suburbs have not shared in the growth and increased affluence that other parts of the
region have experienced -- a fmding corroborated by the market analysis performed by the Arden Hills team.
Excerpts from the ACCCP's fmal report are included in the appendix to this report.
Ramsey County, through its Parks and Recreation and Public Works Departments, was an active participant in both
the Committee's process and the planning effort undertaken by the City of Arden Hills. The County has two primary
interests:
. It would like to participate in preserving Marsden Lake and other natural open-space areas on the TCAAP site;
and
. It has been working with the City and the Minnesota National Guard to develop a plan for a joint maintenance
facility, to be located somewhere on TCAAP.
A four-city consortium, consisting of Arden Hills and its three TCAAP neigbbors, has been discussing the
possibility of constructing a joint ballfield facility. One of the sites that interests the four parks departments most is
in the northwestern quadrant ofTCAAP. The joint recreational facility was a topic of frequent discussion at
meetings of both the Vento Committee and the Arden Hills Task Force.
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F. Non-Local Claims
US Department of Defense: Under the GSA's property disposal rules (see Section D, "Local Obligations"), other
agencies within the Department of Defense (DOD), or for whom the DaD may act as an intermediary, have first
claim to excess property at TCAAP. In addition to other service branches, these agencies include the US Army
Reserve and the Minnesota National Guard.
The Army Reserve occupies about 25 acres in the southeast corner of the site. It has expressed an interest in making
use of three additional storage/maintenance facilities.
The National Guard occupies 18 acres at the northwest comer of Hamline Avenue and CSAH 96, nnder license with
DaD. The Guard has expressed an interest in requesting additional property to expand its training area. It is also
willing to work with the City of Arden Hills and Ramsey Connty to build a joint public works facility on its
property, which would also require more land. The City of Arden Hills has extended water and sewer service to the
Guard site in anticipation of additional development, whether by the Guard. another governmental agency or private
interests.
Once the claims of all Defense agencies and surrogates have been satisfied, the property becomes available to other
federal agencies and non-federal government claimants for whom they act as intermediaries. For example, nthe
State of Minnesota wanted a piece of property for a new prison and had developed plans for the prison at TCAAP,
the Department of Justice could submit a claim to the GSA on its behalf.
US Department of Housing and Urban Development (HUD) under the McKinney Act: One of the priority claimants,
nnder the McKinney Act, would be providers of shelter for the homeless. The Aroerican Indian Housing
Corporation (AIHe), a not-for-profit housing provider affiliated with several Minnesota tribes, has expressed an
interest in the fourteen single-family homes on the site. These homes are located in the northwestern quadrant,
facing 1-35W, on a 25-acre parcel ofland. However, HUD has declared, as recently as April 7, 1995, that the homes
are located in a secured area within 2000 feet of explosive material, and that some of these homes are "extensively
deteriorated". A recent inventory conducted by the AIHC indicates that most of the homes are salvageable, uniess
they are allowed to remain nnoccupied and unheated for another two or three years, at whicb point the fonndations
will begin to suffer from the neglect, condemning the houses to demolition. Given the nncertainty of the timing of
the Army's declaration of excess, the future of these homes and the AIHC's potential claim is also highly nncertain.
In addition, HUD would not step in to save the homes unless Alliant Techsystems ceases operation or substantially
reconfigures its storage facilities.
US Department of the Interior/Bureau of Indian Affairs (BIA): Similarly, the Department of the Interior could
submit a claim on behalf of a tribe interested in taking over some or all of the property. The Prairie Island
Mdewakanton Sioux have sent a resolution to the BIA expressing their interest in TCAAP:
The Prairie Island Indian Community Council does hereby request a contract for the acquisition oflands
pursuant to "The Indian Self-Determination, Education and Assistance Act (P.L. 93-638) 25 U.S.C. 450 (h)
3" requesting the Secretary of the Interior to acquire title into trust on behalf of the Prairie Island Indian
Community to the following real property described to wit: (follows with legal descriptions ofTCAAP)
Attached to the resolution is a "Buildings and Land Use Plan for Twin Cities Army Ammnntion Plant (Arden
Hills)", dated Jnne 30, 1995, wbicb states:
The Bureau's purpose for acquiring the Twin Cities Army Ammnntion Plant (Arden Hills) is to provide,
promote and enhance the Prairie Island Indian Community's health, welfare, economic development,
housing, employment, education, social services, natural resources management including forestry and
wildlife management and commnnity activities. The Bureau will utilize the Twin Cities Army Ammunition
Plant (Arden Hills) property to enhance and expand the Prairie Island Indian Commnnity's land base to
accommodate the housing needs and bealth concems of the Prairie Island Dakota Community's
approximately 490 tribally enrolled members.
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The U.S. Department of the luterior (DOl) is requesting the Department of the Army to forward their
Request for Transfer of Excess Real and Related Personal Property (GSA Form 1334) to the Office of
Management and Budget to approve an exception to the 100 percent reimbursement requirement, i.e. a "no
cost" transfer of the property. The authority for the acquisition is in accordance with Section 105 (I) (3) of
P.L. 93-638, the Indian Self-Determination and Education Assistance Act, and subsequent technical
amendment pertaining to real property within P.L. 101-644 states "the appropriate Secretary may . . .
acquire excess or surplus Government personal or real property for donation to an Indian tribe or tribal
organization if the Secretary determines the property is appropriate for use by the tribe or tribal
organization for a purpose of which a self-determination contract or grant agreements is authorized under
this Act. 1I
The plan states six rationales for the tribe's procurement of TCAAP:
(I) Increase land base of community for tribal member residences -- "The land base of the Community as
noted is
mostly on a floodplain and limited in size. There is a waiting list of about 80 families who would like move
[sic] to the Cornmunity if there were land available. . . . The Arden Hills Site will provide an opportunity to
create another community with affordable, safe housing for tribal members."
(2) Health concerns -- "Resident tribal members and non-resident tribal members considering returning to the
Community have concerns about the health of their families living so close to a nuclear power generating
plant
and higb voltage power lines. Since this is the only community in the United States located so close to a
nuclear
power generating plant (residences within 3 blocks), the studies are not defInitive on the effects of such
close
proximity to human beings over time. . . . Further, the public who come to game at the tribal business
enterprise bave concerns about the safety of being so close to a nuclear power generating plant and high
voltage power lines,"
(3) Safety concerns -- include limited road access to the community; fears about a potential incident at the
nuclear
plant; potential for railroad accidents; potential for barge accidents; and potential for "incidents of civil
disobedience" to "cause safety risks to tribal member residents and patrons of tribal business enterprises"
"due
to limited land base on the island and limited entrances/exits."
(4) Developing the tribe's economic potentia1-- "The use of the Arden Hills site wonld provide an area to
attract
and develop other businesses. High stakes gaming may not be around for a very long time, so the tribe is
anxious to find other ways to generate revenues to care for their members and plan for future generations
according to the Dakota culture. A second gaming enterprise on the Arden Hills site may assist in
generating
income to develop infrastructure and begin pursuing other economic development opportunities. . .. The
[present] casino and bingo operation has reduced unemployment and welfare rolls in the surrounding area."
(5) Protection of tribal assets.. concerns that potential incidents (flooding, a nuclear incident, bridge orroad
repairs) could damage or destroy existing business.
(6) Protection of the natural resources and burial mounds on Prairie Island -- by reducing the threat of
overdevelopment and alleviating pressure on the island ecosystem.
To dste, no action has been taken regarding this request.
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II. Site Overview
A. Local Land Use and Zoning
1. Existing Arden Hills Comprehensive Plan
The Arden Hills Comprehensive Plan was adopted in 1981. This plan shows a mix of uses for TCAAP (Figure3):
. About one-third of the site, including the Marsden area wetlands, Sunfish Lake, part of the upland and
kame,
and the Rice Creek corridor, is designated for parks and open space.
. About one-fourth of the site is designated for industrial use. This area corresponds rougWy to the
currently
industrialized area in the southern and western portions of the site.
. Commercial uses are shown at the far southeastern comer as well as in the center of the site, where it
was
presumed major site-serving roads would cross. This central area also includes a site designated for "other
publici', probably for a school, as well as a site designated for "semi-public."
The rest of the site, including the remainder of the kame and an area of sensitive prairie potholes, is
designated
for residential use of varying densities.
It should be noted that this plan for TCAAP was prepared without detailed site analysis, under the assumption that
the site would remain in federal ownership indefInitely and would continue to be used as it is today.
2. Existing Arden Hills Zoning
The local Zoning Ordinance is typical of those found in largely "built" suburban communities. The ordinance
includes:
four residential classifications -- two essentially single-family, one for townhouses and other low-density
attached housing, and one for multi-family housing;
four business classifications -- one for offices, two for general business, and one designed specifically for
unified retail centers;
two industrial classifications, both geared toward what is commonly referred to as "light" industrial uses,
including office/showroom, warehouse, research and assembly; and
two flexible categories -- one (GB Gateway) designed specifically for the I-694/I-35 interchange area, the
other
(I-Flex) designed specifically to implement the Lexington Avenue Business Area Plan.
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Land may be developed in one of three ways:
traditional zoning, with permitted single uses and fixed bulk regulations;
conditional zoning, which allows a wider range of single uses under conditions imposed by
the Planning Conunission and/or City Council; and
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INSERT FIGURE 4 CURRENT ZONING
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planned unit development, which allows a mix of uses as well as negotiation of other
development standards, such as bulk regwations.
The zoning ordinance requires site-plan review for new development or additions in any business, industrial or
multiple-family district, as well as for PUDs, conditional uses, variances or reuses that require additional parking.
Standards relating to landscaping, lighting, fences/walls, parking, outdoor storage, lakefront lots,
wetlands/floodplains, drive-in businesses of all types and auto service stations are also included. Signs are regulated
primarily throngh administrative review, although some require Commission and Council approval.
The ordinance does not address:
heavy industrial uses (manufacturing, such as Alliant Techsystems's operations);
institutional and public uses -- these are placed in other zoning categories;
non-traditional housing types, such as congregate housing, that are not lIinstitutionalll; nor
private recreational uses, such as golf courses or amusement parks; nor
surrounding land uses.
At present, TCAAP is zoned primarily R-l Single-Family Residential, except for the industrial area shown in the
Comprebensive Plan, which is zoned 1-2 General Industrial (Figure 4).
3. Surrounding Land Uses
Three uses dominate the land surrounding TCAAP (Figure 5):
Single-family residential: To the north and east in Shoreview, and to the south in Arden Hills;
Parks and open space: To the north in Shoreview and to the west in Mounds View and New Brighton; and
Industrial: To the west and southwest in Arden Hills, New Brighton and Mounds View.
There is also substantial commercial land to the west along U.S. 10 in New Brighton and Mounds View, and
business park/office land to the northwest and southeast in Shoreview.
Land use and transportation in the area around TCAAP is constrained in many instances by the presence of
uumerous lakes and other wetlands. The presence of these wetlands also accounts for the preservation of much of
the open space.
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INSERT FIGURE 5 SURROUNDING LAND USE
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B. Existing Infrastructure
This section provides an overview of key components of the existing infrastructure system at TCAAP. For the
purposes of this report, the term "infrastructure" includes the sanitary sewer, water, drainage, transportation,
electrical and natural gas systems. Information was obtained from utility maps, record drawings, aerial photographs
and other documents. Information sources included Federal Cartridge Company; the Cities of Arden Hills,
Shoreview and Mounds View; the TCAAP Resource Library; Metropolitan Council Environmental Services; and
the Rice Creek Watershed Management Organization.
Please note that this overview is not a complete summary or detailed analysis of the infrastructure on TCAAP, but
rather a broad overview of key infrastructure components in and around the site.
1. Site History
Understanding the history of the site is critical in estimating the age and condition of the existing infrastructure.
Many of the infrastructure components are located on the southerly and westerly portions of the site. The south side
was the fIrst area to be constructed, with work beginning in the fall of 1941. This area is called the "upper area," and
the buildings consist mostly of wood-frame construction. The upper area was built by a large labor force that
completed construction in only six months over the winter of 1941 and 1942.
The westerly part of the site is called the "lower area" and was constructed during the 5- to 10- year period
following construction of the upper area. Buildings in the lower area consist mostly of masonry type construction.
Over time, infrastructure was expanded to the east and north. However, fewer resources were devoted to
infrastructure in these areas because the natural topography was less conducive to construction.
Many of the original buried utilities installed in the early 1940s are still in place. Although some have been
abandoned, a surprisingly large percentage are still being used today. Some updates and expansions occurred as a
result of repairs, failures, etc., or due to development changes around the perimeter of the site. A variety of pipe
materials was used. Non.metallic pipe materials were probably substituted for cast iron during war-time periods
when metal was scarce or costly.
Alliant Tecb Systems currently occupies Buildings 103, 104,502 and 576. Accordingly, a portion of the site utilities
are utilized by Alliant Tech Systems. These utilities include sauitary sewer, water, natural gas, electricity and
telephone.
2. Sanitary Sewer System
When site construction began in 1941, the closest wastewater treatment plant was located in Minneapolis. A large
sanitary sewer pumping station was constructed in the southwest part of TCAAP and two parallel force mains (18-
and 24-inch diameter) were run the 24 miles between TCAAP and Minneapolis. The original sanitary sewer
facilities included the main pumping station as well as a newer, smaller pumping station, whicb served the northerly
part of the site and pumped sewage south toward the main station. The collection system consists of sewer mains
ranging in size from 6 incbes to 24 inches in diameter. Approximately 16 miles of pipes are included in the system.
Pipes were made from a variety of materials, but most of the smaller pipes are made of either vitrified clay or cast
iron.
Originally, portions of the sanitary sewer and storm sewer may have been connected. Structures capable of diverting
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high sanitary flows to the storm sewer system have since been abandoned.
In 1994, the main pumping station and parallel force mains were abandoned. A new grinder pump and gravity trunk
main were installed from the old main pumping station northwesterly to the intersection of Couoty Road H and U.S.
Highway 10 in Mouods View. There the sanitary flow passes into a trunk main owned by the City ofMouods View.
The trunk main carries the flow about a quarter-mile to a pumping station owned by Metropolitan Couocil
Environmental Services (MCES), from which it is carried by regional facilities to the MCES Plant (Figure 6).
All of TCAAP is served by the new trunk main into Mouods View except the United States Anny Reserve Center
located in the southeast comer of the site. The USARC is served by the City of Arden Hills. The State of Minnesota
Driver's Training Center, located in the northwest comer of TCAAP, is served by a lift station and force main
system that pwnps south into TCAAP's sewers.
According to the MCES, the new gravity trunk main was sized large enough to handle future flows from TCAAP.
The MCES's lift station and force main in Mouods View also have adequate capacity to handle future flows.
However, MCES has indicated that the trunk main owned by Mounds View, which couoects TCAAP and the MCES
lift station, is uodersized and cauoot support future flows. The MCES bas also indicated that this trunk main may be
taken over by the MCES in the future and upgraded to an interceptor so that it can handle future flows from
TCAAP.
MCES records show that the entire TCAAP site lies within the Metropolitan Urban Service Area.
3. Water Systems
Potable Water System
The original potable water system was built in the early 1940s and was supplied by wells located east of Building
101. Over a period of time, three wells were dug in this area. An elevated water storage tank was constructed east of
the wells on the side of the hill. The tank appears to be constructed of steel with an approximate storage capacity of
250,000 gallons. The original distribution network connecting the wells and tank to the buildings was probably
constructed of cast iron pipe or a non-metallic substitute.
As more buildings were built and the TCAAP site continued to expand to the north and east, more water storage was
needed. Sometime during the 1950s or 1960s a second storage facility was constructed. This is the 1,000,000-gallon
grouod storage reservoir located northeast of the elevated tank on top of the hill. The sides of the reservoir are
partially earth-bermed, and the structure has a roof. During roughly the same period, water treatment facilities and
fIre suppression facilities were added. Most of the fire suppression mains and hydrants were connected to raw water
lines. Where raw water lines were not close by, potable water was used.
Today, two of the three wells still appear to be in service. In addition, both storage facilities are being used. The
elevated tank is used to store raw water for the fIre suppression system. The reservoir is used to store potable water.
The distribution piping ranges in size from 6 inches to 16 inches in diameter (Figure 6).
Boundary Groundwater Recovery System
In 1987, the Army installed a Boundary Groundwater Recovery System (BGRS)to clean up the groundwater its
activities bad contaminated in and arouod the TCAAP site. The BGRS consists of 24 wells (Figure 6). Sixteen wells
are located in the southwest comer of the site and pwnp raw groundwater to treatment facilities located in Building
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116. The water is treated and then pumped to the gravel pit, where it is discharged back into the aquifer. On the
north edge of the site, eight more wells pump contaminated groundwater northward to a sanitary sewer in
Shoreview.
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INSERT FIGURE 6 EXISTING UTILITIES
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Surface Water Drainage System
TCAAP is part of the Rice Creek Watershed District. All surface water runoff from the site eventually flows to Rice
Creek aud from there to the Mississippi River. However, depending on specific location within TCAAP, runoff
may take one of three different routes to reach Rice Creek. Part of the site drains to the southwest, some drains to
the east and north, and the remainder drains to the west.
The southwest comer of TCAAP (about 15% of the site) drains southwest through a 60-inch pipe under U.S.
Highway 10 and State Highway 96 to Round Lake. (The Anny owned the land surrounding Round Lake for a
period of time.) From Round Lake, the flow continues southerly to Valentine Lake and then northwesterly to Long
Lake. From Long Lake the flow goes into Rice Creek. The boundary of this subdistrict roughly runs through
Buildings 105,503 and 576.
The easterly half of the site drains east to Sunfisb Lake aud Marsden Lake. The overflow from Marsden Lake flows
northerly into Rice Creek via a 24-inch culvert under Harnline Avenue to County Ditch No.1. The rough boundary
of this subdistrict runs up Snelling Avenue and through the gravel pit east to Hamline A venue. This subdistrict
contains about 40% of the site.
The northerly and westerly parts of the site drain directly into Rice Creek. This subdistrict contains about 45% of
the site, and is bounded by Snelling Avenue and the gravel pit on the east and Bnildings 105 and 503 on the south.
The flow enters Rice Creek through three storm sewer outlet pipes ranging in size from 42 inches to 72 inches in
diameter.
On-site surface-water collection and conveyance facilities include catch basins, piping, culverts and ditches.
Construction materials include wood, cast iron, concrete and others. The exact age of most storm-sewer components
is unknown, but it is safe to assume that the oldest components date back to the early 1940s.
The surface-water storage and treatment areas include the gravel pit and the lake and wetland areas. Some of the
ditches may also serve as storage areas for surface water.
4. Public Utilities
Electrical System
Northern States Power Company (NSP) serves TCAAP with a 69 kilovolt (KV) overhead transmission line. This
line enters the site at the intersection of Hamline A venue and CSAH 96, then runs northwest to four main electrical
substations (Figure 6). Electricity is distributed through 13.8 KV overhead lines. Backup electricity is available
through emergency 13.8 KV overhead lines.
The electrical distribution system is maintained by NSP and is currently in good condition. Power has been cut to
those buildings which are scbeduled for demolition. However, the remainder of the electrical facilities are currently
in operation. Almost all of the equipment is overhead on wooden poles, with very few buried cables. Telephone
cables are generally suspended on NSP's poles.
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Natural Gas System
When construction began in the early I 940s, a 12-inch diameter natural gas pipeline was constructed from
Minneapolis to TCAAP. The alignment of this pipeline rougWy paralleled the dual sanitary sewer force mains
installed at the same time. Natural gas was used for fIring boilers that heated the buildings with steam. In addition,
natural gas was piped in process lines to the buildings. The gas mains were kept in good condition by the use of
cathodic protection.
In 1991, NSP extended a 6-incb diameter natural gas main to the site, and the old 12-inch line was abandoned. This
six-inch main was extended to the site from the south and runs along the north side of Highway 10. It enters the site
south of Building 105. Only a few of the buildings are still served by active gas mains.
For safety reasons, many of the gas mains on site have been abandoned. Gas main abandonment typically consists
of "purging" the pipe with nitrogen, removing valves and connections, and welding caps on all open ends of the
pipe. Abandoned gas mains are generally left in place, but some lines leading into TCAAP have been removed.
5. Transportation System
Internal to TCAAP
The internal transportation system consists of paved and unpaved roadways, trails, parking lots and railroad spurs
(Figure 6).
TCAAP contains about 55 miles of bituminous paved roads and many more miles of gravel roads. Most of the
paved surfaces are located along the western and southern sides of the site. The roads and parking lots are in fair to
good condition due to the Army's regular maintenance program. There is one bridge on the site, which also serves as
a dam on Patrol Road where it crosses Marsden Lake. Roadway access to the site is available from the south
(Hamline at CSAH 96), west (US Highway 10 or CR H), or north (what is now called Mounds View Road on-site).
Currently, however, access is restricted to the main entrance from Highway 10, except in special situations.
TCAAP contains a fairly extensive rail network. During peak production, the railroad was heavily used. As highway
access to the site improved, rail service declined. Today, much of the track is in poor condition due to limited use
and maintenance in recent years.
External to TCAAP
TCAAP is well-served by regional roadways, including Interstate 35W, US Highway 10. and County Highway 96.
The condition and status of these roads may be important to the site's future:
. Interstate 35W has been removed from the state's replacement program. Should the highway need to be
upgraded"" e.g., by altering interchanges or widening pavement"" the responsibility for funding the
improvements may fall to the surrounding cities.
. US Highway 10 is the subject of a jurisdiction study that may turn the section adjacent to TCAAP back to
Ramsey County for maintenance and upgrading.
. Highway 96 is already slated to be upgraded in the next few years. One item of discussion is the possibility for
converting the US 10/96 intersection into a grade-separated intercbange. Such a reconfiguration would
undoubtedly affect access to TCAAP.
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INSERT FIGURE 7 EXISTING TRAFFIC
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c. Existing Natural & Recreational Resources
The following information is a distillation of the important natural resource issues of the TCMP. It is based on a
significant amount of background information gathered by many local naturalists and resource professionals.
Figures 8 and 9 show much of this information in visual form.
1. Natural Characteristics of the Site
Geology, Soils and Topography
The high "hill" on TCMP, actually a kame, is the higbest point in Ramsey County and offers vistas in all
directions. This hill is of particular importance to the natural history of the area as a relict of the glacial landscape
that once occupied most of Minnesota. These glacial hills, known as kames, are a less common feature of the
landscape here than in other parts of Minnesota. The TCMP kame has been recorded in the Minnesota natural
history database as a geologic feature of the glacial period, and it provides a diverse environment for plant and
anirnallife fonns.
Upland soils surrounding the kame are a variety of well- to moderately well-draining loamy fme sands. The steeper
slopes of the kame are sandy loam with high erosion potential. The Rice Creek corridor contains poorly draining
loamy sand. The soil has low organic matter and drains rapidly, but flooding and a high water table make it a
seasonal wetland.
Erosion potential is severe in the disturbed gravel pit area atop the kame. Phase I measures being undertaken now
include revegetation with prairie sandreed grass in trial areas. Phase II measures will be implemented soon through
a 1992 SCS (Natural Resources Conservation Service) erosion control and surface-water management plan.
Surface Water
Surface water drains into the Rice Creek Watershed. Most of the water flows into the Marsden Lake wetlands, then
uorth, eventually to Rice Creek. In the northwest corner of the site water flows directly into Rice Creek. This
drainage includes water from the west slope of the kame.
The quality of the wetlands on TCAAP supports a diversity of wetland wildlife (see following discussion).
Maintaining good water quality requires management of both the quantity and quality of storm water runoff from
developed areas. Fluctuations in water levels above existing conditions will adversely impact habitat for several
wetland wildlife species, including Blanding's turtle and trumpeter swan. Proposed new stormwater runoff will
include treatment measures with features that avoid changes in existing water quality and levels in the wetlands.
Wetlands
The TCAAP wetlands, as well as Sunfish Lake, are identified by the State of Minnesota as protected waters and
wetlands. Three major wetland areas in particular are worth noting for their value within the natural community:
. Riparian wetlands are located along Rice Creek. Riparian wetlands buffer the flow of flood waters and diversify
the aquatic stream habitat.
. A large complex of small wetlands and interspersed uplaud extends in an arc around the north region of Turtle
Lake. The western tail of this complex extends onto the northern portion ofTCAAP. Interspersed upland and
wetland complexes are generally known for a high level of biodiversity -- that is, the numbers of species
typically finding a home in the upland-wetland edge is very bigh compared to other habitat areas.
. Marsden Lake is a large wetland complex of deep and shallow marsh, scrub-shrub, and wet meadow. The only
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smaIl area of wet meadow that has so far been identified as high-quality lies along the eastern edge (Figure 9).
This
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INSERT FIGURE 8 DEVELOPEDIDISTURBED AREAS
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wet meadow has retained a diverse assemblage of native flora and is the only part ofTCAAP noted on Ramsey
County's Natural Communities Map. Marshes are one of the most productive temperate-climate communities.
They
provide significant food for animals higher up the food chain, and the bigger the marsh, the bigger the food
chain.
Biological Components: Natural Plant Communities
In all, the natural plant communities on TCAAP are not prime examples of undisturhed floral diversity. Much of the
area was grazed and some was tilled (Figure 8).
Native prairie remnants remain in two locations. The first is the wet meadow noted above. Another area is on the
high ground of the kame, south of the gravel pit. This area is moderately disturbed. Scattered stands of variously
disturbed prairie flora can also he found in the understory of oak woodlands, which appear to have been savanna.
Oak woodlands with varying degrees of disturbance are scattered throughout TCAAP (Figure 9). The higher quality
woodlands are distinguished by the continued presence of prairie ground cover, a vestige of theie former savanna
status. Although oak savannas are extremely rare across Minnesota, those on the TCAAP kame are sufficiently
disturbed not to be considered high-quality examples of this plant community. As such they are not noted on the
Map of Natural Communities of Ramsey County developed by the Minnesota County Biological Survey. As a local
resource, though, the oak woodlands should not be overlooked. Arden Hills would be well served by preserving
them.
Biological Components: Animal Communities
The plant communities may not be distinguished, but the size of the site and its variety of vegetation, topography,
and micro-climates supports a diverse array of animal species. TCAAP has long drawn the attention of
birdwatchers, lepidopterists (persons who study butterflies), and other naturalists. The overall consensus of resource
professionals is that size makes the difference: The bigger the open space area, the better for maintaining viable
animal populations and plant comunities. No other open space areas of this size remain in the north most
metropolitan area.
Biological Components: Documented Rare Species
Blanding's Turtle: For many years, resource specialists have known that Marsden Lake is home to a population of
Blanding's turtles. Previous research strongly suggests that this state-listed threatened species has declined
significantly throughout its range. Destruction of the upland breeding grounds surrounding resident wetland areas
seems to be a primary cause of population decline. For the Marsden Lake population to be maintained, unobstructed
movement between Marsden Lake and upland breeding habitat elsewhere must continue.
At present, field research is being conducted to identifY the exact upland areas used by the Marsden Lake Blanding's
population. Based on records made in the 1980s, this territory appears to extend from Karth Lake south ofCSAH
96 northward to the area around Turtle Lake School just east of Lexington Avenue and north of CR 1. Preliminary
rmdings suggest that the sandy grassland area west of Marsden Lake is an important nesting area. Radio-monitored
turtles are being tracked in the wetland complex northwest of Marsden Lake and south of Shamrock Park.
At this point it is premature to conclude where additional active nesting areas or resident homes for Blanding's
turtles might be, other than Marsden Lake. The National Wetlands Inventory map indicates that Marsden Lake (an
old lake basin, now a deep marsh) is part of a large wetland complex surrounding Turtle Lake to the east. It is not
beyond reason to suggest that the turtles originally nested not only in the sandy Chetek and Zimmerman soils west
of Marsden, as they do today, but also in the sandy soil associations between Marsden and Turtle Lake. However, it
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is unlikely that viable nesting area remains between the lakes.
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Trumpeter swan: Trumpeter swans began using Marsden Lake in 1994. Their activity is closely monitored by
wildlife specialists from the Minnesota Department of Natural Resources and Hennepin Parks. Habitat features to
which swans are drawn include the large shallow marsh, which provides a diversity of aquatic plant and animal
food, and relatively static water levels. Swans also prefer waters with little flow-through current. In general it is
known that trumpeters will breed and live when hwnans are nearby, although not with molestation or significant
intrusion. However, if changes in the drainage area resulted in seasonal or storm-related water level fluctuations,
then Marsden would be less inviting to trumpeter swans. Whether or not the birda will successfully fledge offspriog
and continue to return is unknown.
Illinois Tick-Trefoil: This floweriog plant of mesic tall-grass prairies was discovered on TCAAP in 1993. The rarity
of the species is indicated by its status as state-listed threatened. At least three remnant standa have been found
(Figure 9). Other typical and more common prairie species found here include Indian grass, cordgrass, blazing star,
bergamot, Turk's-cap lily, blue-eyed grass, and New Jersey tea. Although the prairie has been somewhat disturbed
by blue grass and brome grass, it is likely that recent burning of the thatch will rejuvenate this and other native
species.
Cultural Modifieations to the Landscape
A cultural resources study ofTCAAP, contracted for by the U.S. Army, is currently being undertaken. A draft
report was to have been reviewed intemallyby the Army during the summer of 1995. It is unclear when a rmal
version will be complete and authorized for public review. However, it is expected that no national register sites will
be found.
2. Ecological Mitigation and Habitat Restoration
As a large remnant open space in the suburbs, TCAAP has been the focus of efforts by major Twin Cities
conservation organizations. These organizations have worked closely with on-site natural resource specialists to
manage the open spaces in a way that creates opportunities for large numbers and varieties of bird and mammal
species to occupy the site.
Perhaps the most significant effort in habitat restoration has involved burrting old fields and prairie areas (Figure 9).
This effort has been undertaken so the Army can sweep the site for munitions, but it also reestablishes nutrient
cycling in the prairie ecosystem. Most of this burning has occurred within the past two years. Ongoing monitoriog
will provide information on the ability ofburrting to rejuvenate prairie species. Some areas have also been seeded in
native grasses.
Animal Species Reintroduction and Relocation
Other restoration efforts at TCAAP are aimed at specific species and have focused primarily on increasing the
number of potential nesting sites for wetland and grassland bird species. A large number of bluebird houses is
scattered throughout the prairie and old field areas. The success of these houses in increasing the local population is
being monitored by conservation groups. W oodduck and kestrel nesting boxes have also been installed in two
locations.
Sunfish Lake has been used for rearing walleye fry for stocking of nearby community lakes.
Species relocation is usually discussed as an option for mitigating loss of habitat. Blanding's turtle females are very
selective in their choice of nesting sites. They will ahnost always return year after year to their birth site, regardless
of impediments such as cars and new lawns. This apparently has made attempts at reintroduction to other areas
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unsuccessful. This means that retaining existing habitat is the bcst hope for preserving this species.
A relatively large deer herd uses the TCAAP. Unlike Blanding's turtle, deer are adaptable to changes in habitat
location. Thus, as existing habitat is developed, deer populations adapt readily to other sites.
NURP Ponds
Storm water detention ponds are part of modem infrastructure design. They will be considered in relation to the
existing wetlands on the TCAAP. Proper sizing and location ofNURP ponds will be important to maintaining the
current value of all wetland types described earlier.
Wildlife Corridor Linking Natural Areas
Most of the critical habitat areas in the center of the property are shown in Figure 9 as disjunct islands in an area
running east-west along the south side of the kame. These critical habitat areas should be integrated into a wildlife
corridor extending from Marsden Lake to the Rice Creek floodplain. The infillland can be targeted for ecological
restoration as part of an inner buffer zone (Figure 10). In this way, wildlife areas will be linked together.
On a larger scale, the wildlife corridor will link the Marsden Lake preservc to Rice Creek and connected habitat
areas to the north. This will provide important connectivity that enhances the ecological function of disjunct natural
areas.
Following the concept illustrated in Figure 10, the land use directly surrounding the wildlife corridor would be the
outer buffer. Intensive human activities would occur beyond this buffer. For example, suppose that the preferred
land use surrounding the corridor is housing. Different environmental constraints could be applied to lots in the
outer buffer than to lots in the more intensive area. Changes might be made in lot size, house position on the lot, and
the type of landscaping that touches the corridor. Lots in the intensive land use area would have fewer constraints.
Two types of residential markets might well arise out of the distinction in treatment.
Linking Human Land Use on Different Sides ofthe Wildlife Corridor
It is possible that we may want to link human habitat across the corridor. Road crossings are the most obvious
necessity in linking human habitats, but trails and even visual corridors can be important as well. In crossing the
wildlife corridor the intrusion should be designed with certain environmental considerations to minimize impact on
wildlife. These considerations may involve installing rural-design roads without curb and gntter, development of an
overarching tree canopy, planting of roadside revegetation consistent with the vegetation of nearby habitats, and
speed limitations. Various culvert and bridge designs that provide under-road travel routes for smaller mammals
may be used. These concepts should be explored in the site-design phase.
3. Recreational Opportunities on TeAAP
Regional Trail Corridor
A regional trail corridor is being implemented along Rice Creek between Long Lake Regional Park and Chain of
Lakes Regional Park Preserve. Plans include acquisition of the Rice Creek floodplain area shown on the resource
map.
Nature Study
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TCAAP has received a $50,000 Natural Resources Conservation A ward from the Army Chief of Staff and Secretary
of Defense. This money will be used for the 'Watchable Wildlife' Interpretive Center on the east side of TCAAP.
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INSERT FIGURE 10 BElli'S ISLANDS AND LINKAGES CONCEPT
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D. Site Contamination and Remediation
TCAAP is owned by the federal government and is listed on the National Priority List of the EPA with a score of
59. Until recently, Federal Cartridge Company (formerly Federal Cartridge Corporation) was the primary operating
contractor, except for a period (1946-1950) when the plant was operated by the federal government directly.
Currently most of TCAAP is in standby status. Alliant Techsystems, Inc., operates on the site.
This section of the report reviews the contamination issues on the site and how they may impact planning for the
future use of the site.
1. Background
TCAAP was used primarily for the production of small-caliber anununition and explosives between 1942 and 1976.
On-site manufacturing used solvents in the production of metal shells and anununition. In 1978, environmental
studies were begrm to determine if there were a significant potential hazard for migration of contantination from the
site.
In 1981, groundwater contamination was discovered in the municipal water supply of the City of New Brighton.
Since then, the sources and extent of groundwater contamination have been better dermed through numerous
investigations. Fourteen contamination disposal sites have been identified, with the main contantinants being
solvents and metals.
A nwnber of interim remedial actions have been taken remove contamination. These actions have included source
removal, groundwater treatment, temporary clay capping, soil vapor extraction, soil incineration and soil washing.
In 1991, the U. S. Army Corps of Engineers developed a list ofl82 studies and reports available forreference in the
Environmental Library at TCAAP. These documents cover many issues, including water quality, groundwater,
water systems, reactive wastes, solid waste, PCBs, sewer systems, general studies, remedial investigations, and other
miscellaneous topics. Additional reports and studies have been conducted since 1991. It is not within the scope of
this report to review or swnmarize all the data gathered to date at TCAAP, but merely to identifY how
contamination may affect future use of the site.
2. Existing Conditions
Many investigations have been conducted at TeAAP. As a result of these investigations, fourteen source areas or
disposal sites have been identified (Figure 11). Existing conditions in each of these fourteen areas are discussed
below.
Site A is located on the north-central edge of TCAAP. Sewage sludge, off-specification shells and bullets, spent
solvents and mercury-contaminated crack cases were buried here. The site was also probably used for open burning.
Contaminants of concern are VOCs, benzene, toluene, xylenes, explosives, pesticides, dioxins, PCBs and metals.
Soit and groundwater contamination are present.
Interim Remediation: To remove and treat contaminated groundwater, a recovery well was installed in June
1988 to remove the groundwater and treat it with a granular activated carbon system. Since that time, this
system has been shut down and a more extensive recovery system installed. Eight recovery wells have been
installed to prevent off-site migration. This system purnps rougWy 60 gallons per minute into the Shoreview
sanitary sewer system.
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INSERT FIGURE II REMEDIATION SITES
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Draft Feasibility Study Recommended Alternative:
. Site A Unit I: Continue containment pwnping and monitoting of the groundwater; utilize institutional
controls; undertake air stripping treatment or discharge, Rice Creek discharge, source characterization and
remediation.
. Site A Soils: Undertake excavation, soil washing/leaching, handling of other materials, backfilling.
Site B is located along the northern boundary ofTCAAP. Before 1940, this portion of the site was occupied by
farmsteads. Material was dumped in the farmstead building foundations. It is believed that sewage sludge was
disposed here before 1966. Contaminants of concern include PCBs, pesticides, VOCs, semi-volatiles, explosives
and heavy metals. However, no significant contamination has been found at this site.
Interim Remediation: No remediation has been performed at this site. The Feasibility Study recommends no
further action since significant contamination has not been found here.
Draft Feasibility Study Recommended Alternative: Remedial alternatives for Site B were not recommended
because contaminants did not exceed preliminary clean-up goals.
Site C is located immediately east of Mounds View Road within the central portion ofTCAAP. It was used for
burrting lumber, solvents, oils, maizo (com cobs), and possibly other production materials. The site was also used
as an open storage area. Contaminants of primary concern include solvents, oil, grease, dioxins, explosives,
propellants and metals. Soil contamination has been docwnented. Low levels of groundwater contamination have
been detected sporadically.
Interim Remediation: No remediation has been performed at this site.
Draft Feasibility Study Recommended Alternative: Undertake excavation, soil washinglleaching, handling of
other materials, backfilling
Site D is located 220 feet west of Snelling A venue, south-southeast of the reservoir in the south-central part of
TCAAP. Several pits on the site were used to dispose of powder water, oil, grease, solvents, rags and neutralized
cyanide. Other materials disposed at Site D include primer and tracer powder, scrap propellant, thinner, varnish and
swnp waste. Western ball powder, solvent, contaminated rags, scrap chemicals and oil were disposed of in the rag
pit. Oil and grease were reportedly burned daily in the oil pit. Contaminants of concern include VOCs, PCBs,
solvents, heavy metals, semi-volatiles, thinners, oils and cyanide. Soil and groundwater contamination are present.
An eighteen-inch clay cap was laid over the site to prevent precipitation infiltration.
Interim Remediation: In February 1985, 1400 cubic yards of PCB-contaminated soils were excavated and
stockpiled; in 1989, this soil was incinerated on-site. A soil vapor extraction system was installed on the site in
Fcbruary 1986 to remove VOC contamination and is still in operation today. Studies indicate that most of the
VOC soil contamination has been removed.
Draft Feasibility Study Recommended Alternative: Continue existing SVE operation, expand with deep vents,
impose institutional controls.
Site E consists of approximately 7.6 acres located in the central portion of TCAAP. This site was formerly used as a
non-combustible landfill and as a burning area for combustible and explosive wastes. Contaminants of primary
concern include VOCs, semi-volatiles, explosives, dioxins, furans and heavy metals. VOC contamination and low
concentrations of metals have been detected in the groundwater. Metals were detected in a nurnber of soil samples
from the site.
Interim Remediation: No remediation has been conducted at this site. Soil washing is a recommended clean-up
alternative in the Feasibility Study.
Draft Feasibility Study Recommended Alternative: Undertake excavation, soil washing/leaching, handling of
other materials, backfilling.
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Site F is located just east of Snelling Avenue and south of the central part of TCAAP. The site contains about 10
acres, and was apparently held burning kettles, plates and tanks for disposal of scrap powder and ordnance. The site
also had pits for burying cyanide pots and mercury crack cases. The ash and residue from burrting were dumped on
the surface and casings were buried in trenches. Soil at Site F is contaminated primarily with metals, with isolated
zones ofVOC contamination. Groundwater shows the presence ofVOCs but no significant metal contamination.
Interim Remediation, Soil washing and soil leaching are currently being conducted to remove metals from the
soil. This procedure occurred in October- November 1983, May - October 1994, andApri1- July 1995, when
soil washing/leaching was completed. VOC contamination in the soil still exists. Most oftheVOC-contaminated
soil has been stockpiled and covered. It is anticipated that this contaminated soil will be treated at the smelter
that is now reclarnating the metals.
Draft Feasibility Study Recommended Alternative: None, since this site is near closure.
Site G is located east of Snelling A venue and south-southeast of thc central part of TCAAP. It contains an
irregularly shaped landfill that was used as a durnp site for rubble, asphalt pavement, barrels, oil filters, etc.
Contanrinants of concern include solvents, VOCs and heavy metals. Soil at this site is contaminated with VOCs and
metals. Groundwater has detectable levels ofVOCs.
Interim Remediation, An eighteen-inch clay cap and SVE system were installed in late 1985. The SVE system
went into operation in February 1986.
Draft Feasibility Study Recommended Alternative: Continue existing SVE, expand SVE with deep vents and
institotional controls.
Site H is located in the southeastern comer ofTCAAP on the northwest side of Sunfish Lake. Site H was a burrting
site with a burning cage in the middle. The cage was used to bum primarily Class A combustibles ( wood, paper,
cardboard, and burnable trash). Other materials, including solvent-contaminated maizo, were also burned at Site H.
Contaminants of concern include solvents, metals, explosives, VOCs, PCBs, semivolatiles, and dioxins. Surface
soils at the site have metal contamination. VOC contamination was detected via a soil gas survey. Copper
contamination was measured in sediments at Site H. Low levels ofVOC contamination may be present in the
groundwater at this site.
Interim Remediation: No remediation has been conducted at this site.
Draft Feasibility Study Recommended Alternative: Excavation, soil washinglleaching, other materials
handling, backfilling.
Site I consists of Building 502 and its associated structures and facilities. The site is located about 700 feet north of
the southern boundary ofTCAAP, near the intersection of Highways 96 and 10. Sewer disposal of oil and grease,
metal griodings, heavy metals and solvents occurred at this facility. Contaminants of concern include PCBs, VOCs,
heavy metals, and uranium. Soil and groundwater contamination and sewer sediment contamination are concerns at
this site.
Interim Remediation: In August 1987, a Unit 3 groundwater collection/treatment system, known as TGRS
(TCAAP Groundwater Recovery System), was installed.
Draft Feasibility Study Recommended Alternative: Extraction well pwnping, POTW discharge, monitoriog.
Site J is a portion of TCAAP's sanitary and storm sewer system. It is located along the southern and southwestern
borders ofTCAAP. Potential contaminants include oil and grease, metals, heavy metals, solvents, explosives,
lacquers, thinners and metal shavings. No metal contamination greater than the action criteria was found in the
groundwater at this site. Sporadic VOC contamination was detected in monitoriog wells around Site J. No VOC,
PCB, semivolatiles, or other organics were present in soil boriogs. Low levels of metals were present in all boriogs.
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No surface water sediment is associated with this site. However, sewer sediment is an issue.
Interim Remediation: In 1984-86, approximately 50% of the sanitary sewer system (42,000 linear feet) was
cleaned, inspected and tested. The sludge removed from the lines was hauled to a permitted hazardous waste-
disposal site in Ohio. Additional samples were collected in April 1992.
Draft Feasibility Study Recommended Alternative: None. The site was closed in 1993.
Site K is located in the western portion ofTCAAP and occupies approximately 21 acres consisting primarily of
Building 103. Potential contaminants include solvents, PCBs, semivolatiles and metals. Groundwater at this site is
contaminated with VOCs and low concentrations of metals. Surface water samples collected from nearby Rice
Creek showed no VOCs, metals or radionuclides above the action criteria. No VOCs or sernivolatiles were detected
at concentrations above the detection limits in sampled sediments. Soil contamination has been detected within the
Building 103 envelope. Soil contamination includes VOCs and metals.
Interim Remediation:A groundwater collection drain, purnp, and air stripper were installed July - September
1985. The remediation program continues to operate at the present time.
Draft Feasibility Study Recommended Alternative: Interceptor trench recovery, air stripping tower replaced
with shallow tray, NPDES permit, monitoriog.
Site 129-3 lies southwest of the intersection of Snelling and Upper Range Road near the center ofTCAAP. The site
was used for the flashing and disposal of contaminated wastewater, primarily from the lead styphnate primer mix
facility. A pit may also have been used for the disposal of mercurous nitrate. Potential contaminants include metals,
cyanide, and VOCs. Metal contantination was detected in the soils with minor amounts of VOCs. Groundwater data
indicate VOC contamination. No significant metal contamination was detected in the groundwater.
Interim Remediation: No remediation has been conducted at this site.
Draft Feasibility Study Recommended Alternative: Excavation, Soil washing/leaching, Other materials
handling, Backfllling.
Site 129-5 lies in the east central portion of TCAAP, just west of Harnline Avenue. The site covers about 4.5 acres
and was occupicd by farmsteads before TCAAP was constructed. Pits were established here for burrting explosive
wastes, spent solvents and wood. Evidence that the old farm foundations were used as disposal pits may be seen on
historical aerial photographs. Potential contaminants include metals, VOCs, explosives, dioxins, heavy metals and
solvents. Low to moderate concentrations ofVOC contamination in the soils were detected in the southeastern
corner of this site. Low levels ofVOCs have sporadically been detected in the groundwater.
Interim Remediation: No remediation has been conducted at tltis site.
Draft Feasibility Study Recommended Alternative: Excavate, transport to other on-site location, soil
washing/leaching at alternative location.
Site 129-15 is located east of Snelling Avenue near the intersection of Snelling and Reservoir Road in the central
part of TCAAP. This site was used as a landfill for construction debris. Contaminants of concern include solvents.
VOC contamination of soils may be present at this site. Groundwater data showed the presence ofVOCs. No
metals were detected in the groundwater at levels above the proposed action criteria.
Interim Remediation: No remediation has been conducted at this site.
Draft Feasibility Study Recommended Alternative: Excavation, transport to off-site TSDF, other materials
handling.
Deep Groundwater (Unit 3/4) contains Hillside Sand, which is a reddish brown mediurn-to-coarse sand aquifer
with occasional gravels, silty sands and red sandy tills. Unit 4 contains the Prairie Du Chien Group, which is a
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dolomite, light brown to white, thin-to-thickly bedded, variably fractured regional aquifer, and the Jordan
Sandstone, which is a sandstone, white to yellowish, rme to course grained, loosely-to-well-cemented regional
aquifer.
Interim Remediation: TCAAP Groundwater Recovery System (TGRS) is in place (see Site 1).
Draft Feasibility Study Recommended Alternative: Turn off TGRS, monitor.
Marsden Lake is located on the eastern part of the site. The lake drains to the north and eventually to Rice Creek.
Interim Remediation: No remediation has been conducted at Marsden Lake.
Draft Feasibility Study Recommended Alternative: Annual monitoring and reasssessment of sediments,
surface water monitoring, ecological evaluation.
Sunfish Lake is located in the southeastern comer ofTCAAP near CSAH 96.
Interim Remediation: No remediation has been conducted at Sunfish Lake.
Draft Feasibility Study Recommended Alternative: Annual monitoriog and reasssessment of sediments, surface
water monitoring, ecological evaluation.
3. Schedule of Remediation
Based on the TCAAP environmental clean-up schedule of activities dated January 1995, the feasibility study for
Operable Unit 2 (OU2) was scheduled to be complete by July 1995. This schedule was not met. For the purposes of
this report, it has been assurned that the schedule is off by six months. This would mean that the remedial design of
OU2 should be complete by January 1998. Remedial actions should be complete at OU2 by January 2002.
Operation, maintenance and monitoring of the remedial systems is anticipated to continue for 80 to 90 years.
The sites at TCAAP have been divided into three groups: those that should become available for re-use within one
year, thosc that should become available for re-use in five years, and those that should become available in ten
years. Thcse dates are approximations based on current site conditions, on the Draft Feasibility Plan's recommended
altematives, and on the US EP A's "worst-first" policy, which requires that the most hazardous sites be cleaned while
others, even if they are relatively easy or inexpensive to clean, wait their twn.
Group I - Available in one year (1996-97): Sites B, F and J
Group 2 _ Available in five years (2001-2002): Sites A, D, E, H, 129-3 and 129-5.
Group 3 _ Available in ten years (2006-2007): Sites C, G, I and K.
Many issues and unforeseen problems, including a shortage offederal funding, could delay the implementation of
remedial plans. For example, the FY 1995 federal budget allocated $26 million to cleaning up TCAAP; however,
this amount was later cut to only $2 million. It waslater increased back up to about $10 million, but there is no
guarantee that sufficicnt funds will be budgeted in later years, nor that even budgeted funda will actually be
available.
Monitoriog wells, recovery wells, pump houses, SVE systems, etc. may be in operation long after the sites become
available for re-use. Thc locations of some of these items have not yet been determined and may impact land use
planning to a minor extent.
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E. Market Conditions
This section of the report reviews economic and development trends within the Twin Cities region generally and the
north suburban/Arden Hills market in particular. Like other information presented in this chapter, this information
helped to shape the initial TCAAP reuse scenarios.
1. The Minneapolis/St. Paul Metro Area Economy
. The Twin Cities area has a strong, stable economy. Continued strong economic growth is projected, creating
market demand for additional business, office and industrial space.
. The Twin Cities has enjoyed steady growth in population and employment.
. The regional economy is strong in high-tech and service industries, which are typified by higher income levels
and less severe business and employment cycles than other industries.
. Continued sound growth in employment and population will create a continued market demand for new
residential development.
. New retail space will be developed to meet the needs of new residential developments and new employment
concentrations.
2. Development Trends: Metrowide, Ramsey County and TCAAP Vicinity
Retail, Office and Other Commercial Development
. During the 1980-1990 decade over 6,400 acres of land in the seven county metro were developed for
commercial use. This included 639 acres in northern Ramsey County and 170 acres in the TCAAP vicinity.
. Northern Ramsey County attracted 10% of the metro area commercial development. The TCAAP vicinity
attracted 2.7% of the total.
. Between 1970 and 1990, only about 80 acres ofland in Arden Hills was developed for retail, office, and other
non-industrial commercial uses even though additional sites are available for development.
. Between 1987 and 1994, over 12 million square feet of new office space was developed in the region. About
450,000 square feet, less than 4%, was developed in northern Ramsey County.
. Recent retail developments in northern Ramsey County include expansions of the Rosedale and Maplewood
Mall shopping centers and new stores in the vicinity of those malls. Other developments include Target in
Shoreview, Wal-Mart in Vadnais Heights, and Cub Foods in White Bear Township.
Industrial Development
. Between 1980 and 1990, over 6,700 acres in the metro area were developed for industrial use. Over 400 acres,
or 6.1 % of the total, werc developed in northern Ramsey County.
. Between 1970 and 1990, slightly more than 400 acres of industrial land, or 20 acres annually, was developed in
the TCAAP vicinity. This development included less than 100 acres in Arden Hills. Industrial sites are still
available in each of the cities in TCAAP's vicinity.
. Between 1987 and 1994, approximately 3.3 million square feet of office showroom/business center space was
developed in the metro area. Over 300,000 square feet, or 9.5% of the total, was developed in northern Ramsey
County. New Brighton, which is adjacent to TCAAP, has attracted a nwnber of business center developments.
. There is nearly 13,000 acres of vacant land, excluding wetlands, available for development within the
Metropolitan Urban Service Area (MUSA) in northern Ramsey County. A significant amount of this land is in
industrially zoned areas. Anoka County communities north of TCAAP also have large areas available for
industrial development.
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Residential Development
. During the 1980s, more than 48,000 acres ofland was developed for residential use metro-wide. More than
3,000 acres, 6.2% of the total, was developed in northern Ramsey County.
. Residential development in the vicinity of TCAAP has averaged more than 100 acres annually, including about
15 acres annually in Arden Hills. Of the 100 acres, about 80 acres dcveloped for single family homes, while
less than 25 acres were developed for multi-family residences.
. In each of the past nine years, an average of over 900 new single family homes were built in northern Ramsey
County -- about 6.5% of the annual metro total of nearly 14,000 homes.
. An average of272 new single family homes have been built annually in the TCAAP vicinity. Little new
construction has occurred in Arden Hills, which has little vacant residential land.
. The amount of multi-family rcsidential construction has decreased significantly since 1990, in both the metro
area as a whole and northern Ramsey County.
. Since 1990, an average of 275 new mnlti-family units have been built annually in northern Ramsey County,
including an average of 60 units annually in the TCAAP vicinity. The only significant multi-family
development in Arden Hills was a 60-unit development in 1994.
3. General Assessment of the Arden Hills/TCAAP Market
In recent years, western Hennepin County, northern Dakota County and Washington County (Woodbury and others)
have attracted large shares of the development occurring in the metro area, while development of most uses has
occurred relatively slowly in northcm Ramsey County. New development of all types, however, continues to occur
in the northeast metro area, due to its convenience to both downtowns and to the University of Minnesota campuses.
Sites in northern Ramsey County will become more attractive as available sites in other portions of the metro area
are used up or become increasingly distant from employment centers. The prospects for various uses:
Re,idential: Excellent. This has typically been northern Ramsey County's strongest market segment, and it will
continue to perform well in the foreseeable future. Housing of all types is usually in strong demand.
rnmmercial (Retai(l: Fair. The retail uses most likely to select Arden Hills, specifically the TCAAP site, are ''big-
box" "category-killers'! -- warehouse-type stores devoted to a single major product category, such as electronics or
office supplies; and convenience/neighborhood uses geared toward serving their immediate surroundings. A few
highway-oriented retail and service uses might be drawn to the site as well.
rnmmercial (Oific~): Uncertain; perhaps good, long-term. Because of TCAAP's visibility and access to I-35W,
development of an office campus on the site is not out of the question. However, this use has not traditionally been
Ramsey County's strong suit. It might become so when the southern metro office corridor, which extends from Eden
Prairie to Eagan, becomes saturated, but this possibility is still at least ten years away.
Qljice-WarehnuveIOifice-Shnwrnnm: Good, particularly ifTCAAP does not become available right away. This will
allow other remaining office/light-industrial properties in Arden Hills and surrounding communities to be used up.
light lndu,trial: Good. The I-35W corridor has an industrial character virtually its entire length between downtown
Minneapolis and points north of Arden Hills, and the city, New Brighton, Shoreview, Roseville and other nearby
communities have been very successful in developing light industrial uses.
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III. Goals and Evaluation Criteria
In Chapters I and II of this report, a picture of current (1995) conditions was presented and assessed. These two chapters
provide a snapshot of TCAAP at roughly the lime of its excessing by the federal government.
The next logical step in the planning program was to detemtine what the community wants TCAAP to be in the future.
This type of goal-setting was essential to provide guidance to the preparation of alternate reuse plans and development
of reuse policies.
A. Goals For Reuse of TCAAP
Prior to developing alternate plans for TCAAP, the Task Force and City Council engaged in a visioning exercise. This
exercise explored five critical questions:
(I) What are the best things about Arden Hills? These might be the reasons you moved here, of qualities you
admire, or what is unique and positive.
(2) What are the worst things about Arden Hills? These items might be things that are lacking, of poor quality, or
worrisome for the future (e.g., stagnant tax base).
(3) What's your vision of TCAAP, 20 years from now? What qualities should it have? What should it represent
to
the City of Arden Hills? Examples might include 11a new type of community", "a major tax generator'" "a
regional recreational center", etc.
(4) What goals must be set if we are to achieve the vision? For example, if one vision ofTCAAP is "a regional
recreation center", appropriate goals might include setting aside a large amount of open space, setting up a
system of greenways for trails, working with the MN Amateur Sports Commission and/or Ramsey County
Parks, etc.
(5) What ideas do you have that might help the City achieve its vision? To return to the "recreation center" vision,
ideas might include cross-country ski/bike trails throughout the site, an equestrian center, a speed-skating rink,
a hockey arena, or many other items.
The outcomes of this exercise were combined with ideas for resolving site-based issues and with professional planning
judgmentto create a draft list ofTCAAP reuse goals. Over the course of three Task Force meetings, these goals were
rermed into the list that appears here.
Land Use
VI Create identifiable neighborhoods and neighborhood units. Discourage creation of "walled" and otherwise exclusive
neighborhoods.
V2 Encourage construction of a variety of housing types, particularly those not readily available within the community
now (e.g., starter housing and housing for seniors), for households with a wide range of incomes.
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U3 Encourage mixed, multiple and shared uses and buildings (e.g., of parking facilities) when possible and when this
will reduce public costs and ground coverage by impervious surfaces.
U4 Create retail, residential and mixed-use areas that are pedestrian- and bicycle-oriented and minimize vehicular
traffic.
U5 Create an identifiable community core consisting of public uses, which may include a new city hall, public works
garage, community center and such cultural facilities as a nature center, library or historical museum, as well as
appropriate private uses. If a school will be needed on the TCAAP property, site it within or adjacent to this core.
U6 Establish a development pattern that can be readily served by public transportation.
U7 When reviewing development proposals, consider them as part of Arden Hills as a whole rather than as stand-alone
schemes. Make sure that new developments integrate with and complement existing development, particularly
adjacent uses. Balance existing land-use deficiencies by setting aside space for needed facilities.
US Accommodate qualified Federal uses in a manner that maximizes the long-term value of the site.
Transportation and Infrastructure
Tl Design and build an internal system of roads that promotes desirable development patterns, is transit-friendly, and
links TCAAP to the rest of Arden Hills and adjacent communities as well as to the regional transportation system.
T2 Encourage use of alternate travel modes, such as biking and walking, by creating pedestrian-friendly environments
and linking activity centers with trails and other non-vehicular routes.
T3 Reserve sufficient areas and corridors for community infrastructure, including water and sewer service, roads and
streets, parks and (if needed) schools.
T4 Reuse existing on-site infrastructure to the extent that this is practical and cost-effective.
T5 Develop a stormwater management master plan for the site that takes advantage of and enhances such natural and
man-made assets as existing wetlands and the gravel pit.
Open Space and Recreation
As used in these goals, "open space" means any undeveloped area characterized by vegetative cover or open water, or
a developed area set aside exclusively for pedestrian use. Open space may include meadows, prairies, forested areas,
marshes and other wetlands, lakes and ponds, creeks and river corridors, lands needing special protection (e.g., steep
slopes and wildlife habitat), sports playing fields (e.g., golf courses, soccer fields, etc.), trails and trail corridors,
cemeteries, plazas, public gardens, amphitheaters, and other large, unobstructed areas.
Rl Provide a balance of active and passive public open spaces that respect and take advantage of natural site
topography and features.
R2 Develop pedestrian and bike trails throughout the site and link them to other trail systems, both within and beyond
Arden Hills. Connect the Rice Creek corridor through the site.
R3 Provide for a mix of public recreation types, including adequate neighborhood parks.
R4 Seek out and consider for development recreational spaces and facilities that are unique to the community,
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acceptable to community residents and anticipate future demographic needs.
R5 Balance public recreational activities that require fees for use with areas that may be enjoyed for free.
R6 Encourage development of a nature interpretive center on the site.
Economic Development
El Create a development climate for TeAAP that encourages formation and development or a wide range of job types,
particularly well-paying commercial and industrial jobs.
E2 Encourage commercial development within TCAAP that complements cxisting commercial (retail and office)
development and expands the economic base within Arden Hills.
E3 Move, upgrade or consolidate industrial operations that negatively impact on the development character and value
of the remainder of the property.
Community Character and Development Quality
Cl Establish design standards and guidelines that encourage good design and development practices.
C2 Revisc the zoning ordinance and other land-use regulations to provide the City with the tools it needs to work with
developers to achieve Master Plan goals. .
C3 Establish a process for evaluating TCAAP development proposals that includes adequate review of site planning
and design, traffic impacts, environmental impacts, fiscal impacts, and other impacts on the community, and that
leads to achievement of community goals.
C4 Require landscaping in keeping with and complementary to the site's natural environment.
C5 Incorporate open space into each private development site.
C6 Encourage innovative development practices and land-use solutions that will enhance Arden Hills's reputation as
a
high-quality, progressive community and help it meet other TCAAP goals.
FiscaVFinancial
F1 Use a fiscal-impact model to evaluate development proposals and determine both their short-term and long-term
impacts on the City's budget.
F2 Set aside sufficient land for tax-generating uses to support public uses and public investments on the site.
F3 Pursue attractive and appropriate uses that will generate sufficient revenue to balance or exceed the cost of
development.
F4 Manage development timing to ensure that cost-generating uses are balanced with revenue-producing uses to
minimize fiscal impacts.
F5 For each development initiative, explore cost-saving and cost-shariog alternatives, such as public-private
partnerships, development clustering, recapture agreements, construction bonuses, joint operation (e.g., of
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recreational facilities, with neighboriog communities and/or Ramsey County), payments in lieu of taxes, etc.
F6 To the extent possible, use open space as a revenue generator for the City of Arden Hills.
F7 Consider revenue sources from outside the community and from uses on the site to help acquire, maintain and
operate on-site public open space and recreational amenities.
Long-Term Feasibility
These are goals the City must pursuc in order to guarantee the success of the TCAAP plan.
Ll Take advantage of current interest in and concern about the future ofTCAAP to spur regional and state actions that
will enable the long-term redevelopment of the site for the benefit of Arden Hills.
L2 Work with the City's Congressional delegation to expedite release of key federal parcels.
L3 Charge the Plarnting Commission with overseeing implementation and updating of the TCAAP Master Plan.
L4 Protect long-term goals for TCAAP by ensuring appropriate zoning for all parcels on the site, regardless of
ownership.
L5 Ensure that the Master Plan has enough flexibility to readily accommodate market, social, economic, laXation and
technological changes over time.
L6 Develop a contingency plan for the short-term accommodation of existing industrial uses.
L 7 Build community consensus behind the original Master Plan and continue to keep the community informed about
the status ofTCAAP, particularly progress and successes.
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B. Criteria for Evaluating Concept Plans
This list presents evaluation criteria in the form of questions that had to be answered about each planning scenario. Each
criterion was derived from one or more of the goals for reuse of TCAAP. Potential measures of these criteria are shown
in italics. The last page of this section indicates which goals relate to which criteria.
As concept plans were developed and rermed, each was evaluated against these nineteen criteria. This procedure
provided a consistent way of viewing each plan and comparing it to other plans. One result was that the plans could be
compared side-by-side in matrix form, enabling the Task Force to chart its progress toward a desirable end product.
The criteria were never formally weighted -- that is, no criterion was given less or more importance in decision-making
relative to any of the others. However, it was clear throughout the review process that open-space, environmental and
fiscal criteria were of primary concern to the Task Force and therefore received more of their attention. In the end, these
were the critical factors that afrected the Task Force's rermement of the concept plans and ultimate acceptance of the
preferred alternative (discussed in greater detail in Section IV).
Land Use and Community Character
UCl Is the mix of land uses suitable for Arden Hills?
UC2 What is the community core/focal point? Does it
contain enough space to accommodate a variety of
uses? Is it accessible to the rest of the (off-site)
community?
UC3 Does the plan reduce or eliminate existing land-
use deficiencies -- e.g., retail imbalances, housing
choices, etc.?
UC4 Does the plan respond to expected short-term and
long-term market demands?
Transportation and Infrastructure
TCl Does the primary transportation network lend
itself to efficient development patterns and adequate
property access?
TC2 Does the transportation system provide adequately
for different travel modes?
TC3 Does the plan permit practical reuse of existing
infrastructure systems?
TC4 Do the transportation and utility systems respect and
enhance natural features?
extent of each land use; match with existing
land use patterns; variety of housing types;
possibility for mixed and shared use; place-
ment of high-intensity uses near major
roads;marketflexibility
presence of a gathering place; combination of
uses; land availability; proximity to major roadway
links; accessibility from Arden Hills; uniqueness
presence of missing uses; presence of uses in
in oversupply
possibility for quick marketing; market flexibility;
space for unforseen opportunities; protection for
long-term development; ease of phasing
linkages to regional network; lot/parcel configura-
tions; proximity to collector; extent of road
duplication
extent of streets, sidewalks, trails; inclusion of transit
loops/hubs/nodes/faciiities; proximity to collector
extent of reusable infrastructure systems, including
roadslroadbeds; other reusable facilities
respect for natural contours; avoidance of natural
areas; extent of NURP ponds and other quasi-
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wetland
TC5 Will site development overburden the regional
highway network?
Open Space and Recreation
RCl Does the plan provide a balance of active and
passive recreation opportunities, and of spaces
for community-wide and neighborhood use?
RC2 Does the plan protect sensitive natural areas and
threatened/rare/unusual species?
RC3 Does the plan show a comprehensive system of
trails connected to off-site trail systems?
Economic Development
ECl How much land does the plan set aside for job-
producing activities?
EC2 How much land does the plan set aside for business
opportunities?
EC3 Can Alliant Techsystems be accommodated on the
site in the short term (say, 10 years)?
10 years)?
Fiscal and Financial Impacts
FCl Will the development scheme be a net drain on or
a net contributor to local taxing jurisdictions?
FC2 How much land is set aside for tax-generating uses
vs. tax-exempt uses?
FC3 How much infrastructure must the City provide in
advance of development?
FC4 Does the plan provide space for revenue-generating
recreational uses?
needed; grading needed to accommodate roads and
utility corridors
traffic loads on major roadways (spec. 1-35W, CSAH
96 and County 1); provision for alternative modes
acreage in each type of use; extent of four-season
opportunities
extent of habitat preservedldestroyed; preservation of
natural features; extent of impervious surfaces
extent of linked trail system; links to activity areas and
off-site trail systems
extent of job formation; anticipated types ofjobs
land allocated to business-generating uses; visibility
and accessibility of sites
extent of interference with current Alliant operations;
extent to which plan assumes consolidation or
elimination; potential relocation site
fIScal impacts of deveiopment (revenues vs. costs)
percentages of each, including Federal uses; presence
of uses that will attract other uses
extent and nature of required infrastructure;
feasibility of early revenue generation; existence of
non-debt resources
amount of land set aside; opportunities for joint
funding; fee potential
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C. Correlation of Goals and Criteria
This table shows how the goals and criteria relate to one another. In cases where no goal or criteria is listed, the
objective will be achieved in later planning stages through development guidelines, rmancial arrangements, and
other non-land use techniques.
These Criteria relate to These Goals These Goals relate to These Criteria
UCI U2,U3,U6,U8,F2,F3 Ul
UC2 U4,US,U6,U7 U2 UCI, UC3,UC4
UC3 U2,U3,U7 U3 UCI, UC3
U4 UC2,TC2
TCI U6,Tl U5 UC2
TC2 U2,U6,U8,TI,T2 U6 UC1,UC2,TCI,TC2
TC3 T4 U7 UC1,UC2,UC3
TC4 T5 U8 UC1,UC4
RCl RI,R3 Tl TCI,TC2
RC2 RI,R6 T2 TC2
RC3 R2 T3
T4 TC3
ECI EI,E2 T5 TC4
EC2 E2
EC3 E3 RI RCI, RC2
R2 RC3
FCI F4 R3 RCI
FC2 F2 R4 RCI,UCI,UC3,UC4
FC3 FI, F3 R5 FC4
R6 RC2,TCI
EI EC1, EC2
E2 EC2
E3 EC3
FI FCI
F2 FC2,UC2,EC2
F3 FCI,UCI,EC2
F4 FC3
F5
F6 FC4
F7
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IV. Concept Plan Development
Development of four concept plans began as soon as the goals and related criteria had been solidified. The intent of
these initial plans was to provide a means of testing the viability ofvarious uses and intensities of use on the site.
Each plan would therefore have a different focus.
Before determining what those foci should be, however, it was essential to establish a physical framework that
would be common to all the plans. This framework would "fIx" certain elements of the site -- that is, elements that
cannot (or should not) be changed, that provide fIxed opportunities or obstacles, or that need protection from all
urban development. The framework would in turn shape all subsequent planning.
A. Planning Framework
1. Transportation System
No site, particularly none as important as TCAAP, exists in isolation. Each site must be linked with other sites to
build a coherent regional development pattern. The transportation system provides the links that create this pattern
and make it work. It also provides coridors through which major infrastructure components can pass without
disrupting nearby uses.
Because the area around TCAAP is largely developed and therefore fIxed, site-access points were fairly simple to
derme:
. On the south: Primary access at Harn1ine Avenue and CSAH 96; secondary access possible at Snelling or other
existing street connection.
. On the east: Limited access possible only on the north side of the Army Reserve property. Marsden Lake and
related protected areas effectively block all other access on this side of the site.
. On the north: Primary access at [Moundsview Road] and County Road I; secondary access possible at another
existing street connection to the east.
. On the west: Primary access at I-35W and County Road H; sccondary access possible from US 10. The
Minnesota Department of Transportation (MnDOn will probably prohibit primary access directly from US 10,
because the contemplated 10/96 intersection would be too close to the IO/I-35W interchange to permit
additional traffic movements. However, secondary access from thc southwcst might be provided as part of the
10/96 interchange.
Given these points of access and the emerging open-space framework (see Sub-section 3, below), it became clear
that on-site roads would follow a fairly consistent pattern:
. North-south connectivity through the site would be desirable, given the site's large size (two miles across in
each direction). However, this connection wonld not be probided by the Harn1ine Avenue through-route that
was long planned for. The direct north-south route would not only cut through a sensitive natural area but it
would serve little purpose: Harn1ine Avenue north ofTCAAP extends only about a mile into a residential area,
and regional north-south movements are better served by Lexington Avenue. North-south connectivity would
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best be provided by linking the primary north and south access points with some sort of through route, using
one road or perhaps two.
to East-west connectivity is more problematic. However, the envisioned north-south connector could provide a
connection between the Hamline/96 intersection and the 1-35W/County H intersection. Creating some kind of
east-west roadway would also be important in providing access to the site's developable areas.
. Access to specific properties would be provided by looped collector streets extending off the main through-
roads.
. Access to residential and non-residential uses should be segregated to the extent that this is possible. Although
they might share the major roads, their respective traffic distribution systems should be separate.
2. Infrastructure and Utilities
Because it was estimated that most of the underground infrastructure is more than 50 years old, the planning team
decided to assume it would be replaced throughout the site. Two important infrastructure components will be
retained:
. the new Mounds View interceptor sewer, which was completed within the last two years and currently serves
Alliant Techsystems at the western edge of the site; and
.. the water reservoir located atop the kame.
Electric and gas utilities are the responsibility of private companies. In 1995, Northern States Power, the major local
electrical utility, assumed ownership of all on-site distribution equipment. NSP will upgrade this equipment as
needed to serve development when it occurs.
3. Open Space Preservation
The most crucial consideration in developing the planning framework was the high-quality natural environment
present in certain portions of the site. Although much of the site, particularly toward the south and west, had been
heavily developed, large portions of the site had been lightly used and retained many important natural featurcs.
(These features are described in greater detail in Chapter II, "Site Overview.")
Based on a natural inventory prepared jointly by the Minnesota Audubon Council, Audubon Society, Izaak Walton
League, POSE and the local Sierra Club, five natural "zones" were singled out as worthy of protection from urban
development. The intent within these zones would be to allow passive recreation and trail development but to
discourage large-scale land alteration and prohibit most construction. The five zones are described below and shown
in Figure
Zone J, Marsden Lake: Zone I contains Marsden Lake and all related wetlands. It occupies most of the easternmost
one-fourth of the TCAAP site. In addition to high-quality wetlands, which have attracted nesting trumpeter swans,
this zone contains much of the habitat associated with Blandingts turtle, including some nesting areas. Preservation
of this zone would also provide wildlife corridors to natural areas north of the site, as well as to other on-site areas.
Zone 2, Prairie Potholes: This zone contains uniquc wetlands called prairie potholes on the north side of TCAAP.
The zone is characterized by unique soils and geology. It also contains critical nesting areas for Blanding's turtle and
provides linkage to the Marsden Lake area, the kame (Zone 3) and natural areas to the north. The zone also
subsurnes two contaminated sites, thus protecting those sites from development and providing the City of Arden
Hills with a wider range of options in dealing with them.
Zone 3, Kame: Although kames are not unusual in Minnesota, this kame is unique within Ramsey County and,
indeed, within the metropolitan region. Preserving it would preserve its unique topography, the highest point in
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Ramsey County, and spectacular viewsheds to the east and south, Soil conditions, which are characterized by a high
sand content, also argue in favor of protection. The kame includes several small stands of mature trees, particularly
oaks, and a potential amenity area in the form of a gravel pit. Setting aside this zone also sets aside four
contaminated sites.
Zone 4, Rice Creek Corridor: The Rice Creek Corridor has been developed as a trail corridor throughout
northwestern Ramsey County and to the north, The only missing piece in this regional asset is the stretch that runs
through TCAAP. In addition to being a high-value recreational corridor, Rice Creek provides wildlife habitat and
linkages as well. The floodplain is also needed to accommodate high water and mitigate downstream flooding.
Zone 5, Sunfish Lake area: The area around Sunfish Lake contains one contaminated site. More importantly, it also
contains protected prairie vegetation and provides potential recreational and wildlife linkages to the south.
The open-space framework, as initially dermed, is shown in Figure 12. The set-aside area contained about 830 acres
ofland, or nearly 40% of the total land area. This framework would be refmed later in the process, but it served an
important function in shaping initial ideas about what could and should happen to TCAAP in the future.
4. Assessment of Contaminated Areas
Given the probability that site clean-up will be extended due to funding shortfalls, creating more options for dealing
with contaminated areas became an important consideration. One way of increasing those options was to make sure
they are contained within sites that will eventually fall under the jurisdiction of local or regional governments. Thus,
making sure that contaminated areas fell within the zones identified in the open-space preservation area also became
apriority.
The contaminated areas that are included within the open-space framework are as follows:
Within Zone 2 (prairie potholes): Site B
Within Zone 3 (kame area): Sites D, E, 129-3 and 129-15
Within Zone 4 (Rice Crcek Corridor): Site C
Within Zone 5 (Sunfish Lake area): Site H
Among these sites, Band C are undergoing remediation and are expected to be among the first sites cleared for
reuse. (See Section II, "Site Overview", for a complete discussion of the contaminated areas.)
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INSERT FIGURE 12 INITIAL OPEN SPACE FRAMEWORK
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B. Concept Plans #1 - #4
Each of the four initial concept plans was developed based on the following criteria:
. The primary transportation network for each scenario was based on three factors: the need to connect TCAAP
to the regional transportation network; the need to provide access to developable areas; and adequate and
efficient property access. These criteria created four different roadway networks with certain similarities.
. The open-space framework was absolute -- that is, no less than that amount of land would be set aside as open
space,
. The Army Reserve Center and National Guard facility would remain where they are today.
Concept Plan #1: OfJice/Industrial
This scenario emphasizes economic development and business and job formation, 30% of the land, or 634 acres, is
set aside for retail (including general and highway business), office, office/ showroom, warehouse/distribution and
industrial development. This scenario asswnes that the demand for non-residential development in the northern
suburbs will increase in 10-15 years, and that I-35W serves as a potent draw for this type of development. Sites
included in this non-residential area line the east side of 35W and US 10 and extend to the east along CSAH 96, to a
depth of 2800-3000 feet (about one-half mile).
. The remainder of the site would be primarily residential (473 acres, or 22%), with a few exceptions:
. The site immediately east of the MnDOT maintenance facility would be set aside for a school and park; and
. The area surrounding the Army Reserve Center at the southeast comer of the site would be used for
governmental purposes, perhaps including a new city hall and public works garage.
Concept Plan #2: Town Center
In this scenario, office/industrial uses have been scaled back to accommodate a town center comprising III acres
(about 5% of the site). This town center would takc advantage of the access provided by 35W and US 10 from west
of the site to develop a community retail center supported by multi-family residences, small-scale offices (e.g., for
real estate and health-care professionals) and public uses (e.g., a new school). The internal transportation network
would focus on the town center as its hub. The town center itself will need to be given a special focus -- specialty
retail, a group of public uses, entertainment, etc.
Office/industrial uses would again line US 10 and CSAH 96, while the site immediately south of the 1-35W/County
H interchange would be placed in retail or other commercial uses. Uses would extend to a depth of about 2,000 feet.
Total land in these uses: 445 acres, or 22% of the site.
As before, the remainder of the site would be used for residential (469 acres, 23%), local government (78 acres, or
3.8%) and federal government (43 acres, or 2.1 %) purposes.
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INSERT CONCEPT PLAN 1
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INSERT CONCEPT PLAN 2
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Concept Plan #3: Open Space and Recreation
This sceuario departs significantly from the others by using open space and recreation as its primary land-use focus.
The scenario envisions inclusion of 36 holes of golf as well as a major sports complex and a regional park. Open
space and recreation would comprise 767 acres, or 36% of the site, in addition to the 828-acre (39%) open-space
framework described earlier. The transportation network does not penetrate the heart of the recreational area but
skirts the edge of it. Existing wetlands are enhanced by extensive retention-pond areas.
Non-residential uses are still located along the major roadways but are scaled back to a depth of only 1,600 feet
(slightly more than one-quarter mile) and an area of 294 acres (14% of the site). Again, the site immediately south
of the 35W interchange would be set aside for retail/commercial uses. Residential uses are reduccd to only 56 acres,
or 2.7% of the site, and are located in the southwest quadrant of the site adjacent to the golf courses. The
governmental area remains intact.
Concept Plan #4: Residential
This scenario places the greatest emphasis on residential development. 11 includes 626 acres of residential
development broken into low-, medium- and high-density housing. Housing thus accounts for 30% of all use of the
site. The low-density residential area also includes an 18-hole golf course integrated with the single-family housing.
Non-residential uses are conftned to the 35W and US 10 frontages and comprise only 309 acres, or 15% of the site.
The site adjacent to 35W north of the interchange is designated as a "special opportunity site." The frontage along
CSAH 96 would be restricted to single-family uses combined with a designated school/park site. Once again,
govemmental uses and a proposed interpretive center occupy the same places.
Summary of Land Uses
Figure 17 summarizes all of the land uses within each scenario, for comparative purposes. The acreage shown for
each scenario is less than the total 2,370 acre because only the land use "bubbles" were measured, discounting gaps
between uses and heavy roadway lines. Generally, calculated acreage equals about 90% of the actual total.
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I. Figure 17. Summary of Land Uses, in Acres by Scenario
I #1 #2 #3 #4
Open-Space Preserve 828 828 828 828
34.9% 34.9% 34.9% 34.9%
I Single-Family 390 431 28 568
Multi-Family 83 38 28 58
I RESIDENTIAL TOTAL 473 469 56 626
20.0% 19.8% 2.4% 26.4%
Retail (General) 65 47 44 23
I Retail (Community) 0 8 0 20
Retail (Specialty) 0 0 0 44
Office/Commercial 53 0 0 0
Town Center 0 111 0 0
I Special Opportunity Site 0 50 50 50
Commercial Sub-Total 118 216 94 137
5.0% 9.1% 4.0% 5.8%
I Officef.Busrness 52 182 105 125
Office/Industrial 257 166 95 47
Light Industrial 207 0 95 0
I OjJice/Industrial Sub-Total 516 348 200 172
21.8% 14.7% 8.4% 7.3%
.. NON-RESIDENTIAL TOTAL 634 564 294 309
26.8% 23.8% 12.4% 13.0%
Government (Local) 78 78 78 78
I Interpretive Center 36 36 36 36
lnstitotion (Federal) 43 43 43 43
School (w/ open space) 20 0 0 40
I Park/Other Open Space 37 28 116 48
Golf Course 0 0 248 82
Sports Complex 0 0 213 0
Regional Park 0 0 190 0
I PUBLIC TOTAL 214 185 924 327
9.0% 7.8% 39.0% 13.8%
I Area Unaccounted For 221 325 268 280
9.3% 13. 7% 11.3% 11.8%
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C. Evaluations of Concept Plans #1 Through #4
Land Use and Community Character
UCl: Is the mix of land nses suitable for Arden Hills?
Indicators
. Extent (absolute and relative) of each land use in the plan, compared to the extent of each land use in a
typical community.
. Extent to which land use in the plan matches existing land use patterns within Arden Hills.
. Extent to which the plan provides land for a variety of housing types, particularly those not readily
available in the community now.
. Extent to which the plan allocatcs land areas that can include mixed, multiple and shared use of buildings,
parking areas and open space amenities.
. Extent to which the plan allocates high-density residential and high-intensity retail, office and industrial
sites adjacent to or near main collector and arterial roadways.
. Degree to which the plan provides enough market diversity and flexibility to retain relevance over time.
All Plans: All the plans "score" well against two indicators: placement of higher-intensity uses next to major
interior and exterior roadways; and flexibility to accommodate change over time.
OfficelIndustrial: This scenario contains more non-residential land than any other scenario. It also contains more
than would be expected in a typical suburban community, and a higher percentage than may be found in the built
portion of Arden Hills. Residential areas for a wide variety of housing types are allocated in the plan. The extent of
mixed-use areas is very limited, and the amount of space-sharing that might occur is unknown at this time. Overall
rating: Good
Town Center: This concept would briog something new to Arden Hills. As such, parts of it carmot be evaluated in
terms of a "typical" suburban conununity, which often has no defmable core area. The town center could provide a
location for higher-density housing in different configurations than might be practical elsewhere -- e.g., higher-rise
buildings, denser townhomes, etc. The strength of the town center is in its mix of uses, which would share many
opportunities for sharing of space of all kinds. There is some concern as to whether the retail portion of the town
center would sustain its flexibility over timc. Overall rating' Good
Open Space: This scenario contains more open space than any of the others. This preponderance of open space is
not typical of either Arden Hills or most other suburban communities. Land for housing is in short supply in this
plan, although the available land would be reserved for higher-density uses that are more likely to expand
marketplace options. Space-sharing would be possible within the sports complex area but is not readily noticeable
elsewhere. Overall rating: Good
Residential: This scenario most closely parallels the existing mix of land uses in Arden Hills. Thirty percent of the
entire site would be devoted to residential uses of varying densities and types, while another 47% would be devoted
to open space and recreation. Land-sharing opportunities are not evident. Overall rating: ExceUent
UC2: What is the community core or focal point? Does it contain enough space to accommodate a variety of
uses? Is it accessible to the rest of the (off-site) community?
Indicators
. Extent to which the plan creates a community focal point (public gatheriog space) for retail, social, public
and/or community activities.
. Extent to which the focal point combines public and private uses to create a vital activity center.
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. Extent to which the focal point has enough space to reach a functional "critical mass".
. Extent to which the focal point is served by major roadways and through-routes.
. Extent to which the focal point is convenient to and accessible from the rest of Arden Hills and adjacent
communities.
. Extent to which the focal point complements, rather than competes with or duplicates, other community
focal points in the surrounding communities.
OfficelIndustrial: In this scenario, two potential nodes are shown. One is the retail/commercial area on County H
extended; the other is the governmental/interpretive area in the SE comer of the site. Either of these areas could
become a public or social focal point; howcver, the governmental area would generally be limited solely to public
uses. Both nodes are located on major roadways. The retaillcommercial node is accessible from the general region,
but it is not as accessible to residents of Arden Hills as the governmental node. Either node would probably
resemble similar existing areas elsewhere in the vicinity. Overall rating: Fair
Town Center: This scenario deliberately creates a mixed-use community focal point that might accommodate a
number of different uses: retail, office, residential, entertainment, education, community services, etc. The site is
served by major roadways, but is less directly accessible from Arden Hills than are some other parts of the site. This
community node would not duplicate any existing node but would create something unique to Arden Hills. Overall
rating' Excellent
Open Space: Several potential focal points appear here: the goernment area in the SE comer, the retail area on
County H extended, and the sports complex. However, each of thcse nodes has limited potential to accommodate a
mix of uses. Also, the sports complex is not readily accessible from the rest of Arden Hills. Overall rating: Fair
Residential: Again, two nodes are possible: the governmental/interpretive area, and the retail/ commercial node at
the intersection of an internal roadway and County H extended. The charac-teristics of these two areas were
described in "OfficelIndustrial", above. Overall rating: Fair
UC3: Does the plan reduce or eliminate existing land-use deficiencies (retail imhalances, housing choices,
etc.)?
Indicators
. Extent to which the plan provides space for uses that are missing or in short supply in Arden Hills or
surrounding communities, particularly residential choices, retail choices, recreational facilities, public
schools and local govemment facilities.
. Extent to which the plan includes land uses that are already in abundance or oversupplied.
All Plans: Each concept plan includes at least one site for a new city hall, a joint city/county/ National Guard public
works garage, and a public safety facility. Each site also provides space for the new school needed to serve the
population on TCAAP. (In the Town Center plan, the school would be located in the town center.) None of the
plans shows trails, but a trail network may be readily created, beginning with opportunities presented by the
conunon open-space framework.
OfficelIndustrial: Because the office/industrial market in Arden Hills is gcnerally sufficient now (and given
potential development south of Round Lake), in the short term this plan could cause a glut. In the long term it is less
clear whether a glut would persist or the land would be absorbed. The plan provides retail areas that might offer
greater choice to local residents, and space for a variety of potential new housing types. At present, the plan does
not show where needed ballfields might be located; however, there is enough space for them on the site. Overall
rating: Good
Town Center: At present, Arden Hills lacks a community focal point -- something a new town center would give it.
This center could provide space for uses now in short supply u e.g., enter-tainment amenities such as an
amphitheater __ as well as more traditional uses such as retail and professional offices. The town center also affords
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the best opportunity
for providing senior-citizen housing. However, the general location of the town center might not be optimal from a
market standpoint. The plan also includes a special opportunity site that would allow Arden Hills to introduce a
unique use to the area. Again, ballfields are missing from this plan, but there are space and sites available to
accommodate them. Overall rating: Excellent
Open Space: This plan provides enough open space to meet whatever recreational needs Arden Hills might have,
now and well into the future. If anything, it may actually oversupply open space, in the sense that public open space
is usually a net drain on municipal resources. Because it contains only one high-density residential area, the plan
provides limited additional housing choices. Given the amount of open space set aside for both passive and active
pursuits, finding a site for a ballfield complex (or two) would not be a problem. Overall rating: Pair to good
Residential: Among the four, this plan provides for the greatest variety of housing choices, including golf course
communities and other types of single- and multi-family neighborhoods. The only housing type that might be
difficult to provide here is senior-citizen housing. The flexibility inherent in the office/industrial areas along US 10
should allow them to meet long-term needs. Two potential sites for ballfields are noted, and others are possible.
Overall rating: Good
UC4 Does the plan respond to expected short-term and long-term market demands?
Indicators
. Extent to which the plan provides land for uses that can be marketcd quickly (I.e., uses for which there is
current and short-term demand).
. Extent to which the plan affords flexibility to respond to long-term market changes by setting aside areas
that may be used by several uses without reducing the integrity of the overall plan.
. Extent to which the plan provides space for an opportunity that is not now foreseen and is not available in
the general vicinity -- that is, a unique opportunity.
. Extent to which the plan protects land that will be needed for long-term development.
All Plans: The plan provides space for several uses that might be marketed quickly. But due to existing uses on the
site, particularly the National Guard and Alliant Techsysterns, quick turnover may not be possible. The industrial
character of the site as viewed from CSAH 96 and US 10 will deter residential development, while the presence of
Alliant Tech and the implied danger of locating near an aging munitions plant will deter other types of development.
Compounding these difficulties is the uncertain effect of inadequate clean-up funding on the timing of release of
various segments of the site. Conversely, though, these site attributes might assist in preserving land to meet long-
term development needs.
OfficelIndustrial: This plan shows large blocks of office, industrial and mixed-use land that might be used in
several different ways. Rail service is available to these sites. Also, depending on market conditions, a particular use
may occupy more land than originally thought or planned for -- for example, the light industrial areas might
develop as office/ industrial. The easternmost office/industrial site could also be developed in whole or in part for
residential use. Most of the residential areas have similar flexibility. However, unforeseen uses would have to
develop within the context created by the specified uses as development occurs. Overall rating: Good
Town Center: As in OfficelIndustrial, both business and residential areas may be adapted to better fit market
conditions over time, including residential areas within the town center area. This plan also includes a "special
opportunity site" that can respond to unforeseen or unique proposals. The down side: town-center retail areas may
not provide enough flexibility. Overall rating: Good
Open Space: Because of the large tracts of open land retained in this plan, the plan's long-term flexibility is
excellent. (Land could even be converted to non-recreational uses, should the need arise in the very long term.) This
plan also includes a special opportunity site, and is least likely to be affected by the present negative site image.
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Overall rating: Excellent
Residential: This plan retains great flexibility in both the residential and non-residential areas, and it also contains a
special opportunity site. However, it is also the plan most likely to be seriously affected by the negatives associated
with existing on-site uses. Overall rating: Good
Transportation and Infrastructure
TCl Does the primary transportation network lend itself to efficient development patterns and adequate
property access?
Indicators
. Extent to which the transportation network links TCAAP to the regional network.
. Extent to which the land use areas shown in the plan can be divided into a wide variety of lot
configurations and parcel sizes to be served by a variety of potential street layouts.
. Extent to which sites within the land use areas of the plan lie within 1/4 mile of a collector roadway.
. Extent to which major roadways within the plan duplicate the functions of or access provided by other
nearby roadways.
All Plans: Each plan divides use areas into large blocks ofland that may be configured in a variety of ways. No site
in the center of any employment areas is more than 1/4 mile from a major roadway. An access road along I-35W to
the office/business or special opportunity site north of County H is provided in each plan, and frontage or feeder
roads may be provided along both US 10 and CSAH 96 as well. In every scenario, the only types of development
that might lie more than 1/4 mile from a collector are single-family residential and large-scale sports or recreation.
OfficelIndustrial: In this plan, TCAAP is well-linked to the region at I-35W and County H on the west and at
Hamline and CSAH 96 on the south. Connections at County I on the north are not as strong, due to the residential
character of the land immediately north of the site, but the principal site outlet is less than 1/2 mile from the
interchange at I-35W and County 1. Each roadway shown in the plan serves a unique function. Overall rating: Good
Town Center: This plan shows the same roadway characteristics as the office/indusrrial plan, although the road
configuration is somewhat different due to the nature of the land uses. Overall rating: Good
Open Space: This plan shows the same roadway connections as the office/industrial and town center plans, but only
one interior road actually runs through the site, from Hamline at CSAH 96 to I-35W at County H. The northerly
connection serves only one portion of the site and does not provide access to the rest ofTCAAP. Overall rating:
Fair
Residential: In the interest of keeping residential and industrial/business traffic separate, this plan provides two
northwest-southeast roadways that might be construed as redundant, even though they would receive different
treatments to suit their roles. However, this plan provides an additional linkage to the regional network, via Snelling
at CSAH 96, while relocating the usual link at CSAH 96 from Hamline to a location further west. Overall rating:
Good
TC2 Does the transportation system provide adequately for different travel modes?
Indicators
. Extent to which activity centers in the plan can be readily connected using off-street trails.
. Extent to which the plan provides a good location for a transit hub or transfer point.
. Extent to which the transportation network lends itself to transit service that docs not have to double back, cross
itself or travel the same piece of road twice.
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. Extent to which sites within the land use areas of the plan lie within 1/4 mile ofa collectorroadway.
All Plans: The four scenarios were all developed with imposition of a trail network in mind. Although no network
is actually shown, all areas of the site can be connected using off-street trails that rely on the open-space framework,
retention areas, the Rice Creek corridor and easements to link different uses. Also, as described under Criterion TCI
above, very few developable portions of the site are located more than 1/4 mile from a collector roadway, making
circulating transit a real possibility.
OfficelIndustrial: This plan shows several potential transit hubs or transfer points: the retail area at I-35W and
County H, preferably close to the intersection of the more westerly on-site collector street; at the intersection of
County H extended and the more easterly collector; in the heart of the office/industrial area; at the interpretive
center; and in the governmental area just off the Hamline connection. The only location in which a circulator would
have to retrace its path would be within the single-family residential area in the center of the site. Overall rating:
Good
Town Center: This plan contains a natural hub or transfer point, the town center. This center would also promote
higher intensities of use more readily reached on foot and served by transit. The Hamline-at-CSAH-96 site would be
a good transfer point as well. The roadway network lends itself to efficient circulation with little or no doubling
back. Overall rating: Excellent
Open Space: Unlike the other plans, which might contain enough households to justifY a local circulator, this plan
lends itself more to simply brioging regional transit to the site to serve on-site employees. Two transfer points are
readily apparent: At I-35W and County H, and at Hamline and CSAH 96. For the remainder of the site, trails would
provide the priocipal alternate mode of travel. Overall rating: Pair
Residential: This plan contains several likely transit hub/transfer points: I-35W at County H, the three intersections
ofpriocipal on-site collectors in the west-central part of the site, and Snelling at CSAH 96. However, the lower
density of this plan vis-a-vis the OfficelIndustrial plan would make transit more difficult to provide efficiently and
pedestrian movement less likely. Overall rating: Pair
TC3 Does the plan permit practical reuse of existing infrastructure systems?
Indicators
... Extent to which the plan can accommodate reuse of major utility components, such as the water reservoir or
electrical substation.
. Extent to which the plan will reuse existing roadbeds.
. Extent to which the plan can reuse existing underground utility systems (water, sewer, gas, electricity, etc.).
All Plans: In all cases, major utility components may have salvage orreuse value. These components include the
water reservoir, electrical substation and major sewer distributors (particularly the Moundsview distributor, which
was recently oversized to handle outflow from TCAAP). In a few instances, existing on-site roadbeds may be used
for portions of new roadways -- for example, the southerly portions of Snelling and Hamline, the County H
entrance, and what is now called Moundsview Road, which runs straight south from County I next to the MnDOT
site. Other roadways, particularly the remainder ofHamline, may remain as trails or be removed completely to
accommodate redevelopment. As for underground utilities, it is doubtful that much can be reused. Not ouly are most
of the water and sewer pipes more than 50 years old, which gives them dubious reuse value, but the chance that a
new development configuration will fit the old utility configuration is remote at best. Overall rating, all plans:
Poor
TC4 Do the transportation and utility systems respect and enhance natural features?
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Indicators
. Extent to which the transportation network follows natural contours and minimizes the need for major site
grading or wetland mitigation.
. Extent to which the roadway network avoids sensitive natural areas, wildlife habitats and corridors, steep
slopes, unique vegetation and other easily damaged natural features.
. Extent to which the roadway network capitalizes on opportunities to create interesting visual experiences such
as vistas, elements of surprise, etc.
. Extent to which retention ponds and NURP ponds are needed to control stormwater drainage.
All Plans: By preserving the open-space framework, the plans keep roadways and intense uses away from sensitive
lands such as Marsden Lake, turtle habitat and nesting areas, and the kame. Only one drainage swale near Rice
Creek would be crossed by a road. Removal ofHamline A venue from long-term development plans will help
preserve prairie areas containing threatened vegetation. The most intense uses are located in the western and
southern portions of the site, where contours are fairly level and soils are stable. Roadways in the residential areas
(east-central portion of the site) and the trail system are most likely to provide scenic vistas and visual relief.
Office/Industrial: The more impervious surfaces introduced to a site, the greater the need for stormwater
containmcnt and the greater the danger of on-sitc pollution. Because this plan would generate the most impervious
surface area, it would also require the largest storm-water drainage system. This is only hinted at in the present plan.
However, additional retention facilities might also create additional site amenities. The north-south through-road, as
it curves west and north around the kame, would provide some interesting vistas and revelations. Overall rating:
Fair
Town Center: This plan, too, would require more retention area than is now shown; however, the amount of
impervious and partly-impervious surface would be somewhat lower than in thc Office/Industrial plan. The north-
south collector, because it is farther from the kame, would not provide the same level of scenic opportunity. Overall
rating: Fair
Open Space: This plan, which shows extensive retention ponding, might not need all of it, as the coverage by
impervious and partly impervious surfaces would be dramatically reduced. The amount of road shown in this
scenario is substantially less than that in any of the others. However, no roadway offers significant visual interest;
this interest would be provided by trails linking the various kinds of recreational areas. Overall rating: Excellent
Residential: Although coverage by impervious surfaces is somewhat reduced in this plan, partly impervious
surfaces (e.g., lawns) would increase. Again, retention needs have probably been understated. Residential roads
would provide the most interesting views. Overall rating: Fair
TC5 Will site development overburden the regional highway network?
Indicators
. Extent to which traffic loads generated by the plan would cause traffic on regional roadways to exceed their
capacity.
. Extent to which the plan can accommodate alternative transportation modes (e.g., public transit, bicycle
commuting, etc.) lhatreduce automobile use.
All Plans: Each of the concept plans was developed to provide potential for alternate transpor-tation modes, such as
public transit and bicycle movements. Overall rating: Excellent
Office/Industrial: This plan would add about 50,000 vehicles per day to 1-35W -- the equivalent of at least one
additional lane of traffic in each direction. It would have similarly negative impacts on US 10 and CSAH 96, which
would require major improvements. Overall rating: Poor
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Town Center: Although the impacts of this plan would not be as severe as those of the Office/ Industrial plan, they
are still unacceptably high. Overall rating: Poor
Open Space: Among the four concepts, this one has the least impact on regional transportation facilities. Overall
rating: Good
Residential: This plan impacts I-35W less than the Office/Industrial and Town Center plans, but it places additional
burdens on CSAH 96, Lexington A venue and County L Overall rating: Fair
Open Space and Recreation
RCl Does the plan provide a balance of active and passive recreation opportunities, and of spaces for
community~wide and neighborhood use?
Indicators
. Extent to which the plan provides space for active recreational pursuits, such as ballfields.
. Extent to which the plan allows for neighborhood park and recreation areas as well as larger community-wide
open space areas.
. Extent to which the plan provides space for four-season recreation.
All Plans: At this time, none of the plans adequately shows a set-aside for a major ballfield complex orfor
neighborhood park areas. In part, tltis is due to the very conceptual nature of the plans. However, both recreational
uses have been factored into the plans. Two of the scenarios actually show areas that could hold ballfields, and the
other two contain sufficient flexible space to accommodate this use. Neighborhood parks will appear in the next
phase of planning, which will show a much greater level of detail. Overall rating, all plans: Good to excellent
RC2 Does the plan protect sensitive natural areas and threatened, rare or unusual species?
Indicators
.. Extent to which the plan preserves site areas that contain or are likely to contain sensitive natural features.
. Extent to which roadways in the plan avoid crossing or otherwise causing potential harm to wetlands, steep
slopes, critical wildlife habitat and significant vegetation.
. Extent to which the plan would create impervious surfaces (including roadways and streets) generating
stormwater fUnoffthat may contain fertilizers and other pollutants.
All Plans: The open-space framework common to the four plans contains all of the most sensitive features:
wetlands, kame, turtle and swan habitat, trefoil habitat, and Rice Creek. As described under Criterion TC4, every
effort has been made to route roadways away from these features.
Office/Industrial: Because of the large amount of impervious surface this scenario would produce, it will require
extensive pre-treatment of stormwater drainage and retention areas. Overall rating: Fair
Town Center: This plan would reduce impervious surfaces somewhat over the Office/Industrial plan. Overall
rating: Good
Open Space: This plan would require the least stormwater treatment of all the plans. Overall rating: Excellent
Residential: In addition to reducing impervious surfaces somewhat over the Office/Industrial scenario, this plan
provides extensive opportunities to shape housing environments to further protect and buffer natural areas. Overall
rating: Good
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RC3 Does the plan show a comprehensive system of trails connected to off-site trail systems?
Indicators
. Extent to which trails lead to significant destinations and activity centers, such as shopping, employment and
recreation areas, both on and off the site.
. Extent to which on-site trails may be connected to off-site and regional trail networks.
All Plans: The four scenarios were all developed with imposition of a trail network in mind. Although no network
is actually shown, all areas of the site can be connected using off-street trails that rely on the open-space framework,
retention areas, the Rice Creek corridor and easements beyond the open-space network to link different uses. These
trails can and would be connected to other trail systems, such as other trails in Arden Hills and trails leading to Long
Lake Regional Park in New Brighton. OveraU rating, aU scenarios: ExceUent
Economic Development
ECl How much land does the plan set aside for joh-producing activities?
lndicators
. Extent to which the plan allows Arden Hills to provide at least one job for each resident of working age.
According to the 1990 US Census, the potential labor force in Arden Hills consisted of7,1 36 persons over the
age of 15. Of those, 5,155 persons were actuaUy in the labor force.
. Extent to which the plan allocates land for uses capable of generating jobs that pay wages and salaries at or
above the median regional household income. In 1990, the median regionai household income was $36,600.
Median household income in Arden Hills was $51,000.
Office/Industrial: This scenario might generate 20,000 or more jobs, depending on the nature and intensity of the
businesses that locate on TCAAP. In other words, this plan could provide jobs for all of Arden Hills's current
workers, plus all new workers moving onto TCAAP, plus upwards of 10,000 additional workers. Of those jobs,
about 20% would be retail and service jobs, which tend to pay relatively low wages. Perhaps another 20% would be
low-wage office jobs. The remainder would be high-wage professional, technical, research and manufacturing jobs.
OveraU rating' ExceUent
Town Center: This scenario too would generate a significant number of jobs, probably between 15,000 and 20,000.
This would still provide more than enough j obs for new TGAAP residents, as well as others. Again, about 40% of
the jobs would be lower-wage retail, service and office jobs, and the remainder would be higher-wage jobs. OveraU
rating' ExceUent
Open Space: This scenario would employ significantly smaller numbers of people -- between 8,000 and 10,000.
The number of new workers living on the site would be quite small -- less than 900 persons -- so this plan too
provides for an adequate number of jobs. The job figure includes about 900 jobs that would be created by the
recreational components of the site. The income profile of these jobs would be tilt downward slightly, but about half
of the jobs would still be higher-paying jobs. Overall rating: Good
Residential: This scenario would also gcnerate about 8,000 to 9,000 jobs on-site. However, because anothcr
potential 5,300 workers would also be added to the labor force, this plan does not exhibit ajob excess as large as the
others. Also, like the Open Space plan, the wage profile would be somewhat lower than that in the fIrst two
scenarios. Overall rating: Good
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EC2 How much land does the plan set aside for bnsiness opportunities?
Indicators
. Variety of potential business-generating land uses to which the plan allocates land.
. Degree to which the plan provides enough market diversity and flexibility to sustain business activity and
formation over time in the face of technological, social and economic changes.
. Total amount of land set aside in the plan for potential business-generating land uses.
. Extent to which the plan sets aside lands that are higWy visible and highly accessible for business-gencrating
land uses.
AIl Plans: All of the plans provide sufficient market diversity and flexibility to sustain economic development over
time, even in the wake of major changes in business practices. In addition, the plans all allocate to business uses the
most visible and regionally accessible properties: sites along I-35W, US 10 and CSAH 96.
Office/Industrial: This plan shows business areas in two different types of retail use, several different types of
office use (corporateihigh-rent office, low-scale professional/service, and office/warehouse), and light industrial use
with or without rail service. This offers a very wide range of potential business opportunities for a wide range of
company types, both large- and small-scale. This plan also sets aside the largest amount of land for business-
generating uses --- 650 acres, or more than a full square mile. Overall rating: Excellent
Town Center: Like the Office/Industrial, plan, this plan shows several different types of business areas:
retail/commercial, officeihusiness and office/industrial. It also includes two major sites that present other types of
opportunities, the town center and the special opportunity site. About 560 acres of land, or 22% of the site, are set
aside for business uses. Overall rating: Excellent
Open Space: This scenario contains space for retail, officeihusiness, office/industrial and a special opportunity. It
also includes an area for a major sports complex, which may be wholly or partly private. Therefore, although it does
not provide the same range of opportunities as the Office/Industrial and Town Center plans, it remains a viable
economic development option. About 507 acres are set aside for business. (Without this complex: 294 acres)
Overall rating: Good
Residential: In this scenario, the acreage allotted to business areas is significantly less, only about 310. It includes
areas reserved for three different types of retail use, two different types of office use and the special opportunity
site. Overall rating: Good
EC3 Can AIliant TechsysteffiS be accommodated on the site in the short term (say, 10 years) and long term?
Indicators
. Extent to which redevelopment site corresponds to the location of Alliant's current facility.
. Extent to which the plan assumes consolidation or elimination of existing ammunition storage magazines and
bunkers.
. Extent to which the plan contains a site or area to which Alliant Tech could relocate.
AIl Plans: All plans assume that Alliant Tech's operations will be consolidated into a considerably smaller area (at
present, their operations and safety arcs occupy 35-40% of the total site), or that the company will leave the site
altogether. The current image presented by its facility, as well as the danger implied by the scattershot placement of
50-year-old, somewhat ramshackle storage magazines, is a very poor one that would deter any significant new
investment.
It is conceivable that Alliant Tech could relocate to another part of the site, particularly in the Office/Industrial plan.
If such a move were to take place, the new facility would have to conform to local siting and appearance standards.
The Army Reserve Center provides a good example of how an essentially industrial facility can be properly sited
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landscaped and generally made an attractive neighbor and community asset. New, reinforced storage bunkers would
also help assure other investors that the operation is generally safe (especially given the site's long safety record).
OfficelIndustrial: This is the only plan that shows a use pad that essentially accommodates Alliant Tech's existing
building: the office/commercial area north of County H extended. The new entrance roadway could be curved
slightly more to the south to leave Building 103 fully intact, with a small buffer space. This plan also contains the
largest number of sites to which Alliant might reasonably move. Overall rating: Fair
Town Center: The area designated for a town center could retain Building 103 in the near term. However, in the
long term, retention of Building 103 would eliminate any possibility ofactually developing a real town center at this
location. The company could relocate to the west or south, although these areas are designated for office/related
uses of a less intense character, or to the special opportunity site. Overall rating: Fair
Open Space: County H extended, which would serve as the principal collector on the site in this scenario, would
run through Alliant Tech's present building. Again, the company could relocate to the west or south or to the special
opportunity site. Overall rating: Poor
Residential: The intersection of County H extended and the other principal on-site collector would be located
within the Building 103 footpriot. Also, the number of site opportunities for relocating Alliant Tech has decreased,
although the special opportunity site is still a possibility. Overall rating: Poor
Fiscal and Financial Impacts
FCl Will the development scheme he a net drain on or a net contributor to local taxing jurisdictions?
Indicators
. Extent of the tax base (revenues) provided for by uses in the plan.
. Extent of the services (expenditures) demanded by uses in the plan.
OfficeJIndustrial: At full buildout, this plan contains enough space to accommodate $1.1 billion in non-residential
development, with a total tax capacity of about $50 million. This development would generate $8.9 million for the
City of Arden Hills, as well as $56 million for the other two local taxing jurisdictions. Housing on the site would
contribute another $1.3 million to the City and $8 million to the county and school district.
Town Center: At full buildout, this plan would accommodate $469 million of non-residential development that
would generate $3.7 million for the City and about $23 million for the other jurisdictions. Housing would contribute
another $922,000 to the City and nearly $6 million to the county and school district.
Open Space: At full buildout, this plan would hold about $220 million in non-residential development, excluding
the sports complex. (Because of uncertainties as to how that complex might be developed, it was assigned a zero
value.) This development would generate nearly $1.7 million for the City and more than $10 million for the county
and school district. Housing would make a smaller contribution: $270,000 to the City, about $1.7 million total to the
others.
Residential: At full buildout, this plan would hold about $260 million in non-residential develop-ment, generating
more than $2 million in City taxes and $13 million in taxes for the other juris-dictions. Housing would contribute
another $1.7 million to the City and more than $10 million to the county and school district.
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FC2 How much land is set aside for tax-generating uses vs. tax-exempt uses?
Indicators
. Extent to which the plan allocates land to taxable and non-taxable uses.
. Extent to which early development areas identified in the plan will serve as magnets for other appropriate and
desirable uses.
All Plans: Each plan starts with a baseline amount ofland assigned to non-taxable use, in the form of the open-
space framework. This framework occupies 828 acres, or about 35% of the site.
OfficelIndustrial: In this plan, about 52% of the land is taxable, vs. 48 % that is not. This plan shows the highest
ratio of taxable to non-taxable land among the four plans. The sites likely to be the earliest made available for
development include a non-residential area fronting US 10, the office/commercial area on I-35W, and parts of the
residential area in the center of the site. Because of the presence and current appearance of the National Guard
depot, the residential area may not develop right away. Either of the non-residential areas, particularly the I-35W
site, could set a positive tone for later development if properly guided. Overall rating: Good
Town Center: This plan contains just over 50% taxable land, the second-highest ratio. The same sites identified in
the OfficeJIndustrial plan as early-development possibilities would fulfill the same function here. Overall rating'
Good
Open Space: This plan contains the smallest amount of taxable land, only 17%. This means that, unless the sports
complex became a tax-paying use, five-sixths of the site would be non-taxable. Otherrecreational areas could be
"developed" almost immediately and would enhance the value of adjacent properties, but the sites fronting I-35W
and US 10 are still likely to be the rrrstto develop. Overall rating: Poor
Residential: This plan shows 45% of the land put to taxable use, of which two-thirds would be residential. The
prime residential area in the east-central portion of the site would be a logical area to develop quickly, except for the
poor image created by presence of the National Guard at its gateway. Overall rating' Fair
FC3 How much infrastructnre (roadways, sewer lines, water serviee, and off-site storm drainage) must the
City provide in advance of development?
Indicators
. Extent to which proposed uses will require infrastructure, and the nature of that infrastructure.
. Extent to which the plan provides a site or sites that may be marketed and developed within five years of
release, in order to generate revenues provide a togateway" to other sites.
. Extent to which non-debt resources may be used to defray the cost of infrastructure improve-ments -- e.g.,
development contributions, state/county cost-sharing, etc.
. Exteut to which early developments on the site are likely to consist of uses subject to taxation.
AIl Plans: Ttwo sites common to all the plans could develop fairly quickly: a site on US 10, and the site north of!-
35W and County H. Both are accessible from existing roadways and within easy reach of the main sewer, so up-
front invest-ment needs would be minimal. The City should ensure that these areas become "signature" sites to set
the proper tone for later developments. It is possible that the special opportunity site could be developed by a non-
taxable use; if this occurs, the City would have to ensure that the use, the user and the quality of development would
attract taxable uses to other parts of TCAAP.
In all the plans, interior streets (such as residential streets) would be provided and paid for by the development, at
the time of development.
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Omce/Industrial: This plan contains a fair amount of primary roadway for which the City would have lead
responsibility. However, most of this roadway distance is "double-loaded" (provides access on both sides), which
means that private dcvelopment could share part of the cost, and the City's "return" on its investment would be fairly
high. Road development could occur as development occurs, and the City could use it as a development incentive.
Overall rating: Good
Town Center: This plan has slightly less primary roadway than OfficelIndustrial, and again much of it is double-
loaded. Early development could take place using access from existing roadways. However, in order for the town-
center concept to work, the City would have to front the costs of much of the infrastructure, particularly the
lIidentity" roadways that border the to\vn center. This could require a significant investment that mayor may not be
recuped. Overall rating: Fair
Open Spaee: This plan contains the rewest miles of additional roadways and utilities. Nearly all development sites,
including recreational areas, could be accessed from existing roadways, and the primary collector would not need
major "identity" treatment due to the quality of the open space on both sides. However: (I) The major collector
roadway is largely single-loaded, diminishing cost-shariog opportunities; and (2) Other public investruents --
primarily to purchase, operate and maintain recreational areas -- must be factored into this scenario. Although it
probably provides the greatest number of opportunities for different types of cost-shariog relationships, it also will
require a large initial public investment. Overall rating: Fair
Residential: This plan contains significant additional roadways, including a primary collector that is essentially
single-loaded (providing service to the non-residential properties on one side but not the residential properties on the
other). In addition, there are more miles of "identity" roadway than in the other plans. Also, if residential properties
were to develop early on, the City would have to front the cost of a north-south connector leading from CSAH 96.
Overall rating: Fair
FC4 Does the plan provide space for revenue-generating recreational uses?
Indicators
. Amount of land set aside in the plan for recreational pursuits likely to generate fees for use -- e.g., golf courses,
special gardens, health and fitness centers, training centers, arenas, etc.
. Extent to which the plan contains open space or recreational lands that may be jointly funded and/or operated
by the City and other public entities or private sponsors.
All Plans: The open-space framework and interpretive center shown in all four plans could readily involve joint
purchase and/or operations.
Omce/Industrial: This plan does not include recreational or open-space areas likely to generate fees. A community
park might involve cooperation between School District 621 and the City. Overall rating: Fair
Town Center: This scenario does not include fee-for-use recreational areas, either, although it could (e.g., a health
and fitness center or high-maintenance garden). Overall rating: Fair
Open Space: This plan includes several recreational areas that might generate fees: 36 holes of golf, a regional park
and a 213-acre sports complex. These areas might also involve public-private partnerships that could expand the
opportunities for joint rmancing. Overall rating: Excellent
Residential: This plan also includes an area that could generate fees, an executive golf course. Overall rating:
Good
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To Summarize:
The Office/Industrial concept (#1) performed very well against the economic and fiscal criteria. However, the
market analysis indicated that the amount of property set aside for non-residential uses, particularly industrial
and retail, was far too largc to be absorbed in any realistic time frame (if ever). Also, this concept plan would
significantly overburden the regional highway network, requiting sizable investments in road construction and
reconfiguration.
The Town Center concept (#2) also performed well against economic and fiscal criteria, but suffered from some
of the same drawbacks as concept #1: too little market, too much traffic, However, the town-center concept
held great appeal for the Task Force because it addressed head-on the notion of creating a focal point for the
Arden Hills community.
The Open Space concept (#3) performed fairly poorly relative to economic and fIscal measures, but did well
relative to land use, transportation and recreation/open space criteria. Fiscal analysis of this concept indicated
that it might break even, depending on how the large amount of open space were to be owned and managed.
The Residential concept (#4) generally received middling ratings on all criteria. However, it also did not score
particularly poorly on any set of criteria, which made it the best candidate for further rermement.
D. Feedback and Input
The fIrst suggestion made by the Task Force was to preserve the residential character of CSAH 96 and enhance its
role as the "front door" of Arden Hills by creating a roadway with special character -- e.g., landscaping, site entry
features, no non-residcntialland uses, etc. This idea was to be incorporated into the next iteration of concept plans.
At the next public meeting, POSE (Protect Open Space and the Environment) turned out its members in force, and
this group dominated the meeting with applause and vocal disapproval of any concept plan showing development. It
was suggested that the city prepare and evaluate a concept plan consisting entirely of open space. One criticism
leveled at the Task Farcels criteria was that environmental concerns seemed to have been a minor consideration in
its deliberations.
Following the public meeting, Concept #5, All Open Space, was developed and presented to the Task Force (Figure
18). This plan breaks the land into large areas designated for open-space preserve, regional park, and a regional
sports complex. The evaluation of this plan indicated that, like the original open-space alternative (#3), it performed
well against transportation and environmental/recreational criteria, but performed very poorly against economic and
fiscal criteria. (The full evaluation of Concept #5 appears in the appendix to this report.)
Most of the feedback from the public, via the Vento Committee and the Arsenal Cleanup and Conversion Project
(ACCP), suggested that dedicating the entire site to one use was not a good idea. The desire to see a mix of uses on
TCAAP came through loud and clear at virtually every meeting and focus-group session. As a result, the planning
team ultimately used #4 as the basis for preparing a composite concept plan. The new plan (ultimately designated
#6a) included the town center concept, relocated from the west-central part of the site to the southeast part of the
site, adjacent to the Army Reserve site. (See Section V, "Plan Rermement and Prererred Reuse Plan".) The open-
space preserve was also adjusted based on a better understanding of certain natural features (e.g., turtle nesting
areas) (Figure 19).
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INSERT FIGURE 18 CONCEPT #5
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INSERT FIGURE 19 Revised open-space framework
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V. Plan Refinement and Preferred Reuse Plan
A. Development of Refined Plans #6a, 6b and 6c
Following deliberation by the Arden Hills TCAAP Task Force and presentation to Congressman Vento's TCAAP
Reutilization Committee, the planning team prepared a series of rermed plans that were labeled 6a, 6b and 6c. The
plans were prepared in succession, with #6a being the one most closely resembling Concept Plan #4, the
"residential" concept plan. Major differences between #6a and #4 include:
. #6a used the rermed open-space framework, which included more land to protect critical habitat.
~ The "village center" was relocated to the southeastern portion of the site, at the northwest comer of CTH 96 and
Hamline A venue. A school site and civic campus were planned for a site directly across the street.
. The golf course that appeared in earlier plans was relocated in such a way that it was surrounded by single-
family residential development, farther to the west than it had originally been placed.
. The joint ballfields and joint city/county/National Guard maintenance facility were located in the northwestern
portion of the site, along County 1.
. CTH 96 was treated as a landscaped parkway edged with open space_ Only residential and institutional uses,
plus the master-planned village center, would be allowed to front on 96.
(Figure 20)
Task Force discussions led to preparation of Rermed Plan #6b (Figure 21). 6b cut off the small "rmger" of single-
family housing that pushed northeastward into the Marsden Lake area. The plan also relocated the MnDOT
maintenance facility off-site and expanded the size of the joint maintenance facility based on input from Ramsey
County Public Works regarding the . This plan showed some additional commercial/office/industrial space, but also
omitted the joint ballfields. It did, however, introduce the notion of setting aside about 30 acres for a city park. It
also moved uses around so that the entire CTH 96 frontage would consist of public uses or green space.
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Refined Plan 6c further rermed the village center area to include the proposed interpretive center and indicate how
green space would predominate the developable area south of Marsden Lake (Figure 22). The proposed city park
was relocated to a Lexington Avenue site immediately north of the Army Reserve property. MnDOT was restored to
its current site, and the size of the joint maintenance facility was modified to be larger than in 6a and smaller than in
6b, based on the Task Force's resistance to providing so much space for non-city users.
Mayor Probst attended the Task Force meeting at which this plan was discussed. He asked the Task Force to
consider removing the "lobe" of single-family housing that lay between the kame on the west and Marsden Lake on
the east. He believed that Mr. Vento's Reutilization Committee would not accept this lobe, and that in discussions at
earlier Committee meetings the city had suggested that it was not interested in encroaching on any of the
environmentally sensitive areas on the site. With the lobe removed, he said, he would be more comfortable asking
the Committee to accept the city's plan so that a single plan could be relayed to the Army, the General Services
Administration and others involved with the reuse of the property.
The Task Force requested that the planning team prepare another rermement, 6d, showing the lobe removed.
Members also asked that fiscal-impact analyses be prepared for both scenarios, to make sure that loss of the
additional single-family development would not cripple the city's plans for the future.
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B. Evaluation of Refined Plan #6b
Unlike the extensive evaluations of the four initial concept plans, the evaluation of the plan rermements that
followed was not intended to rule out particular configurations. Rather, its purpose was to confirm that the
rermements were, indeed, meaningful improvements over the concept plans. As a result, only one of the rermed
plans was subjected to the complete evaluation. That evaluation appears here. (Note: All of the #6 series plans were
subjected to fiscal analysis to ensure that refinements and changes did not compromise the city's fiscal position in
any way.)
Land Use and Community Character
DC1: Is the mix of land uses suitable for Arden Hills?
Indicators
. Extent of each land use in the plan, compared to the extent of that use in a typical community.
. Extent to which land use in the plan matches existing land use patterns within Arden Hills.
. Extent to which the plan provides land for a variety of housing types, particularly those not readily available
now.
. Extent to which the plan allocates land areas that can include mixed, multiple and shared use of buildings,
parking areas and open space amenities.
. Extent to which the plan allocates high-density residential and high-intensity retail, office and industrial sites
adjacent to or neaT main collector and arterial roadways.
. Degree to which the plan provides enough market diversity and flexibility to retain relevance over time.
Evaluation of Plan: This scenario contains a blend of uses: about 20% residential, 10% connnerciaV industrial, 2%
village center (mixed-use) and 8% institutional and govenunental. The nature preserve covers almost 1000 acres,
more than 40% of the total site area. This mix of uses hews more closely to the planning goals. Overall rating:
Excellent
D2: What is the community core or focal point? Does it contain enough space to accommodate a variety of
uses? Is it accessible to the rest of the (off-site) community?
Indicators
l> Extent to which the plan creates a community focal point for retail, social, public and/or community activities.
. Extent to which the focal point combines public and private uses to create a vital activity center.
to Extent to which the focal point provides sufficient space to achieve a functional "critical mass",
. Extent to which the focal point is served by major roadways and through-routes.
. Extent to which the focal point is convenient to and accessible from Arden Hills and adjacent communities.
. Extent to which the focal point complements, rather than competes with or duplicates, other community focal
points in the surrounding communities.
Evaluation of Plan: This scenario contains a village center, positioned at a major intersection and easily accessible
from the rest of Arden Hills. The village center would include neighborhood retail as well as civic uses and perhaps
some multi-family housing (e.g., housing for senior citizens). Overall rating: Excellent
UC3: Does the plan reduee or eliminate existing land-use deficiencies (e.g., retail imbalances, housing choice)?
Indicators
. Extent to which the plan provides space for uses that are missing or in short supply in Arden Hills or
surrounding communities, particularly residential choices, retail choices, recreational facilities, public schools
and local govemment facilities.
. Extenr to which the plan includes land uses that are already in abundance or oversupplied.
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Evaluation of Plan: This scenario addresses existing and potential deficiencies, such as the need for multi-
community ballfields and additional sites for higher-density housing. It also provides space for a golf course, which
has surfaced again and again as a desirable community amenity. In addition, it provides a large area for the joint
City/County/National Guard maintenance facility, in which MnDOT might also participate. Overall rating:
Excellent
UC4 Does the plan respond to expected short-term and long-term market demands?
Indicators
. Extent to which the plan provides land for uses that can be marketed quickly (i.e., uses for which there is
current and short-term demand).
. Extent to which the plan affords flexibility to respond to long-term market changes by setting aside areas that
may be used by several uses without reducing the integrity of the overall plan.
. Extent to which the plan provides space for an opportunity that is not now foreseen and is not available in the
general vicirtity -- that is, a unique opportunity.
. Extent to which the plan protects land that will be needed for long-term development.
Evaluation of Plan: The plan dermes general land-use categories that may respond to market changes over time.
These include broadly-defmed single- and multi-family areas, as well as areas that may be used for commercial,
office and industrial development. Overall rating: Excellent
Transportation and Infrastructure
Tel Does the primary transportation network lend itself to efficient development patterns and adequate
property access?
Indicators
. Extent to which the transportation network links TCAAP to the regional network.
. Extent to which the land use areas shown in the plan can be divided into a wide variety oflot configurations
and parcel sizes to be served by a variety of potential street layouts.
. Extent to which sites within the land use areas of the plan lie within 1/4 mile ofa collector roadway.
. Extent to which major roadways within the plan duplicate the functions of or access provided by other nearby
roadways.
Evaluation of Plan: The internal network would adequately link TCAAP to the regional system. Development
parcel and lot sizes are suitable for the intended uses. Some minor Ilduplicationll of roads occurs on the west side,
where a residcntial collector parallels a commercial/industrial collector. Overall rating: Good
TC2 Does the transportation system provide adequately for different travel modes?
Indicators
. Extent to which activity centers in the plan can be readily connected using off-street trails.
. Extent to which the plan provides a good location for a transit hub or transfer point.
. Extent to which the transportation network lends itself to transit service that does not have to double back, cross
itself or travel the same piece of road twice.
. Extent to which sites within the land use areas of the plan lie within 1/4 mile of a collector roadway.
Evaluation of Plan: The transportation network is designed to separate residential from non-residential traffic
wherever possible. As a result, the system is not quite as efficient as it might otherwise be from a pure traffic-
delivery standpoint. However, it may be efficiently served by transit, and most parts of the site, except the
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northeastern residential area, will be readily accessible to transit service. Overall rating: Good
TC3 Does the plan permit practical reuse of existing infrastructure systems?
Indicators
II> Extent to which the plan can accommodate reuse of major utility components, such as the water reservoir or
electrical substation.
. Extent to which the plan will reuse existing roadbeds.
. Extent to which the plan can reuse existing underground utility systems (water, sewer, gas, electricity, etc.).
Evaluation of Plan: This scenario could reuse major utility components. However, reuse of underground utility
systems would be limited and probably impractical. Existing road access points may be reused, however. Overall
rating: Pair
TC4 Do the transportation and utility systems respect and enhance natural featnres?
Indicators
. Extent to which the transportation network follows natural contours and minimizes the need for major site
grading or wetland mitigation.
II> Extent to which the roadway network avoids sensitive natural areas, wildlife habitats and corridors, steep
slopes, unique vegetation and other easily damaged natural features.
II> Extent to which the roadway network capitalizes on opportunities to create interesting visual experiences such
as vistas, elements of surprise, etc.
. Extent to which retention ponds and NURP ponds are needed to control stormwater drainage.
Evaluation of Plan: This scenario is better than earlier plans at minimizing disruption to natural areas. Roadways
are most prevalent in parts of the site that have already been impacted by development (e.g., in the southwest
quadrant). On-site retention and NURP ponds will be needed to control and filter stormwater drainage. Overall
rating: Good
TC5 Will site development overburden the regional higbway network?
Indicators
. Extent to which traffic loads generated by the plan would cause traffic on regional roads to exceed their
capacity .
. Extent to which the plan can accommodate alternative transportation modes (e.g., public transit, bicycle
commuting, etc,) that reduce automobile use.
Evaluation of Plan: This plan would load a significant amount of traffic onto the regional roadway system,
demanding some improvements in existing capacities and configurations. However, an internal trail system would
encourage non-vehicular travel within the site and connect the site to other portions of the region. Neighborhood-
serving commercial uses would be present in the village center (and directly across Lexington Avenue in
Shoreview). Overall rating' Pair
Open Space and Recreation
RCl Does the plan provide a balance of active and passive recreation opportunities, and of spaces for
community-wide and neighborhood use?
Indicators
. Extent to which the plan provides space for active recreational pursuits, such as ballfields.
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. Extent to which the plan allows for neighborhood park and recrcation areas as well as larger community-wide
open space areas.
. Extent to which the plan provides space for four-season recreation.
Evaluation of Plan: This scenario provides space for a multiplex of sports fields in the southwest comer, as well as
for a recreational arca adjacent to the school near the village center. Neighborhood parks totaling 10-15 acres would
be included in the residential areas, although they are not yet shown on the map due to the level of detail being used
at this time. The site also includes a golf course. The nature preserve would provide ample passive space, as would
the interpretive center included in the governmental area east of the village center. Four-season recreation have been
planned for. Overall rating: Excellent
RC2 Does the plan protect sensitive natural areas and threatened, rare or unusual species?
Indicators
. Extent to which the plan prescrves site areas that contain or are likely to contain sensitive natural features.
. Extent to which roadways in the plan avoid crossing or otherwise causing potential harm to wetlands, steep
slopes, critical wildlife habitat and significant vegetation.
. Extent to which the plan would create impervious surfaces (including roadways and streets) generating
stormwater runoff that may contain fertilizers and other pollutants.
Evaluation of Plan: This scenario was developed using the most up-to-date information about natural areas on the
site. As a result, it goes out of its way to respect sensitive natural features. However, it would create impervious and
partly-impervious surfaces that would need to be dealt with. Overall rating: Good
RC3 Does the plan show a comprehensive system of trails connected to off-site trail systems?
Indicators
. Extent to which trails lead to significant destinations and activity centers, such as shopping, employment and
recreation areas, both on and off the site.
. Extent to which on-site trails may be connected to off-site and regional trail networks.
Evaluation of Plan: Like the other plans, this scenario can accorrunodate a comprehensive system of internal trails.
Overall rating: Excellent
Economic Development
ECl How much land does the plan set aside for job-producing activities?
Indicators
. Extent to which the plan allows Arden Hills to provide at least one job for each resident of working age.
. Extent to which the plan allocates land for uses capable of generating jobs that pay wages and salaries at or
above the median regional household income.
Evaluation of Plan: This scenario allocates about 240 acres, or 10% of the site, for employment-generating uses.
Based on a site coverage of 20%, this area could provide up to 8,000 jobs. Overall rating: Excellent
EC2 How much land does the plan set aside for business opportunities?
Indicators
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. Variety of potential business-generating land uses to which the plan allocates land.
. Degree to which the plan provides enough market diversity and flexibility to sustain business activity and
formation over time in the face of technological, social and economic changes.
. Total amount of land set aside in the plan for potential business-generating land uses.
. Extent to which the plan sets aside land that is highly visible and accessible for business-generating land uses.
Evaluation of Plan: The ten percent of the site set aside for business-type uses (plus retail areas within the village
center) would provide a wide variety of potential market opportunities. About 2 million square feet of usable space
could be built in these areas. Again, these uses are located where they would be most visible and accessible.
Overall rating: Excellent
EC3 Can Alliant Techsystems be accommodated on the site in the short term (say, 10 years) and long term?
lndicators
. Extent to which a development site in the plan corresponds to the location of Alliant Tech's current facility.
'" Extent to which the plan assumes consolidation or elimination of existing ammunition storage magazines and
bunkers.
. Extent to which the plan contains a site or area to which Alliant Tech could relocate.
Evaluation of Plan: Although Alliant Tech's current manufacturing and storage facilities could not be retained in
the long term, a new facility (e.g., corporate headquarters building) could be readily accommodated. Because land
within the Alliant Tech safety arcs will not be excessed right away, the company may stay in the short term without
completely prohibiting new development, although some changes in its operations would be desirable. Overall
rating: Fair
Financial and Fiscal Impacts
FI Will the development scheme be a net drain on or a net contributor to local taxing jurisdictions?
Indicators
. Extent of the tax base (revenues) provided for by uses in the plan.
. Extent of the services ( expenditures) demanded by uses in the plan.
Evaluation of Plan: This scenario would generate enough tax base to cover its public operating/ maintenance costs
and justifY public investments in infrastructure and public amenities. The timing of the receipt of tax revenues may
be a concern, however, due to the timing of the clean-up and excessing process. Overall rating: Good
FC2 How much land is set aside for tax-generating uses vs. tax-exempt uses?
Indicators
. Extent to which the plan allocates land to taxable and non-taxable uses.
. Extent to which early development areas may serve as magnets for other appropriate and desirable uses.
Evaluation of Plan: About 30% of the site would be set aside for tax-generating uses, with the balance being tax-
exempt (open space, public recreation, school, maintenance garage, etc.). This ratio seems to approach the minimum
at which site development is feasible, given the public expenses that will be incurred in preparing for that
development and maintaining the substantial open space. Overall rating: Good
FC3 How much infrastructure (roadways, sewer lines, water service, and off-site storm drainage) must the
City provide in advance of development?
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Indicators
. Extcnt to which proposed uses will require infrastructure, and the nature of that infrastructure.
. Extcnt to which the plan provides a site or sites that may be marketed and developed within five years of
release, in order to generate revenues provide a "gateway" to other sites.
. Extent to which non-debt resources may be used to defray the cost of infrastructure improve-ments -- e.g.,
development contributions, state/county cost-sharing, etc.
. Extent to which early developments on the site are likely to consist of uses subject to taxation.
Evaluation of Plan: The very earliest developments on the site may be tax-exempt; however, they also will not
require much new infrastructure, given their location at Hamline and CSAH 96. These uses will "set the stage" for
later uses on the site. Infrastructure can be phased in as development occurs, and that development should help
defray the cost of making infrastructure improvements. Overall rating: Excellent
FC4 Does the plan provide space for revenue-generating recreational uses?
Indicators
. Amount of land set aside in the plan for recreational pursuits likely to generate fees for use -- e.g., golf courses,
special gardens, health and fitness centers, training centers, arenas, etc.
. Extent to which the plan contains open space or recreational lands that may be jointly fimded and/or operated
by the City and other public entities or private sponsors.
Evaluation of Plan: This scenario provides space for a golf course. It assumes that all other recreational uses,
although they might generate some fees for use, would require public subsidies. Overall rating: Good
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C. Task Force Preferred Plan #6d
At its meeting on August 22, 1995, the Arden Hills TCAAP Reuse Task Force undertook a side-by-side review of
Rermed Plans #6c and #6d. The only difference between these two plans was the removal of the residential node
that, in Plan #6c, lay between the kame on the west and Marsden Lake on the east. (Figure 23 shows Plan #6d.)
Because the Task Force had requested fiscal-impact analyses for both plans, this was the focus of the discussion.
Ironically, the removal of the residential node actually improved the fiscal impacts slightly, by removing households
for which services would have to be provided without significantly increasing the cost of operating and maintaining
the open space. (Complete fiscal-analysis spreadsheets for all scenarios appear in the appendices.)
Each Task Force member was then polled for his or her plan preference. The consensus among the members was
that the residential lobe was not worth fighting for, if that was all that stood between them and an agreement with
the Reutilization Committee. As a result, the Task Force essentially voted to accept Rermed Plan #6d as its
recornnlendation.
This decision was not unanimous, however. Dissenting voices made two cogent suggestions:
. That the city should do as it pleases, without regard to what non-residents might want; and
~ That constructing housing on the site will be an essential adjunct to ensuring the success of commercial
development in particular, and the more housing that can be provided the better off the development -- and the
city -- would be over the long term.
Even though the decision was not unanimous, though, the Task Force presented a unified position in support of Plan
#6d at its public meeting on August 24.
Public comments at this meeting Ie-raised some contentious issues related to open-space preservation, reuse of the
fourteen on-site housing units for low-income families, and true fiscal impacts, including the cost of demolishing
existing buildings (estimated at $15-20 million). The general tone of the meeting was receptive, though.
The only serious objection to the preferred plan that was raised at this meeting involved "usable" VS. "unusable"
open space. Open-space advocates believed that insufficient open space would be set aside under Plan #6d --
insufficient in that much of what was being recommended as the set-aside was "unusable" land that "couldn't be
used anyway." Although most members of this group saw the need for part of the site to be used for tax-generating
uses -- specifically, the southwestern portion of the site, which has been in industrial use for more than 50 years --
they were interested in setting aside even more than the 1300+ acres of open-space preserve (1043 acres), active
recreation space (257 acres) and intcrpretive center (14 acres). This was an argument that would be heard again as
the plan moved to the Reutilization Committee for review and action.
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Figure 24. Summary of Land Uses in Concept Plans #4, #6a and #6d, in Acres
#4 #6a #6d
Open-Space Preserve 828 980 1,043
34.9% 41.4% 44.0%
Single-Family 568 477 398
Multi-Family 58 50 35
RESIDENTIAL TOTAL 626 527 423
26.4% 22.2% 17.0%
Retail (General) 23 0 0
Retail (Community) 20 0 0
Retail (Specialty) 44 0 0
Office/Commercial 0 0 0
Town Center * 0 47 47
Special Opportunity Site 50 0 0
Commercial Sub-Total 137 47 47
5.8% 2.0% 2.0%
Office/Business 125 0 0
Officc/Industrial 47 196*' 215"
Light Industrial 0 0 0
Ofjice/Industrial Sub-Total 172 196 215
7.3% 8.3% 9./%
NON-RESIDENTIAL TOTAL 309 243 262
13.0% 10.3% 11.1%
Government (Local)^ 78 82 89
Interpretive Center 36 19 14
Institution (Federal) 43 43 15
School (w/ open space) 40 39 24
Park/Other Open Space 48 0 29
Golf Course 82 121 156
Sports Complex 0 63 72
Regional Park 0 0 0
PUBLIC TOTAL 327 367 399
13.8% 15.5% 16.8%
Area Unaccounted For 280 253 243
/1.8% /0.7% /0.3%
* Town center may include office/commercial, retail and some multi-family uses.
" May include office/commercial and office/industrial.
^ Includes protected area around Sunfish Lake and joint public works facility.
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D. Development of Accepted Plan
Following the Arden Hills public mecting, Plan #6d was presented at a meeting of the Reutilization Committee.
Similar types offeedback were received, although the natural protection/open space position was more strongly and
vociferously represented at this meeting.
In the interest of gaining the Committee's support for the City's plan, the plarnring team made an additional set of
changes to Plan #6d, creating #6e (Figure 25). For the most part, these changes were fairly minor, involving
switching the locations of the golf course and some of the housing and tweaking other land-usc boundaries. No
significant changes were made in the amount of land devoted to any particular use.
This plan was accepted by the Committee and was presented at two additional public meetings sponsored by the
Committee in October 1995.
The Committee reconsidered its position after the public meetings, but ultimately decided that a plan very sunilar to
#6e was the most suitable consensus plan for reuse of TCAAP. This position is based on several factors:
. It represents a good compromise between the desires of the public for additional open space and the needs of
the City and County to generate revenues to pay for the expenses of converting and redeveloping the site.
. It sets aside the richest natural environments for preservation and recreation, while reserving already
industrialized areas for more intensive redevelopment.
. The Committee members felt they had devoted as much energy to the project as they could at this time. Further
debate about details would be fruitless at this point and therefore better left for later planning phases, which
would address many of those details.
Plan #6 "f' was approved by the Reutilization Committee on December 16, 1995, and forwarded to Congressman
Bruce Vento for follow-up actions at the federal level.
As of the date of this writing, this plan had not yet been approved by the Arden Hills TCAAP Reuse Task Force.
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VI. Next Steps
With the completion of the Framework Plan for reuse of TCAAP, a major milestone has been reached. However,
much work remains to be done. This section of the report outlines some of the actions that should be taken within
the next few months:
. Amend the Comprehensive Plan
. Adopt two new zoning districts, the OS (Open Space) and the AR (Arsenal Redevelopment), and use them to
rezone TCAAP.
. Pursue special federal legislation that will require that TCAAP be excessed and redeveloped in accordance with
the rules contained within the Base Realignment And Closure (BRAe) Act. This may mean designating or
appointing a Local Redevelopment Authority, as prescribed under the BRAC rules.
A. Comprehensive Plan and Zoning Changes
The City should formally institute a process for amending the existing comprehensive plan to recognize the
framework plan for reuse ofTCAAP. The Task Force should formally present the plan to the City's Planning
Commission, which will hold public heariogs and make a recommendation for action to the City Council. The City
Council must take formal action to adopt the amendment for it to have official status as policy of the City of Arden
Hills.
Following adoption of the amendment, the Planning Commission should undertake hearings related to changing the
zoning applicable to TCAAP. At present, the property is zoned partly as R-I Residential and partly as 1-2 Industrial.
Until TCAAP is actually excessed, redevelopment plans are further rermed and actual development is ripe to occur,
the City should adopt an interim zoning pattern for the site, as follows:
. The City should adopt a new zoning district, OS Open-Space, that permits only non-intrusive recreation
activities (activities that do not degrade water quality, generate undue noise, promote erosion, threaten wildlife
habitat, etc. such as interpretive centers, unpaved trails, canoeing and the like). That portion designated as Open
Space Preserve in Plan 6e (or the amendment to the Comprehensive Plan, if it differs from Plan 6e) should be
zoned OS.
. The City should adopt a second new zoning district, AR Arsenal Redevelopment, to act as a short-term holding
district and long-term development district for TCAAP. The provisions of this district should require that all
development occur in the form of planned developments that concur with the land-use recommendations in the
framework plan and that are subject to City review, in a manner similar to that used within the GB Gateway
Business District. All developable areas within the site, including those designated for public use, should be
zoned using this district.
OS Open-Space District
The Zoning Ordinance should he amended as follows:
. Amend Section II to add a dermition of "Open Space Preserve":
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Open Space Preserve. Land containing natural environments that are unique to the community and that are set
aside for passive enjoyment and light recreational use, such as hiking, bicycling, nature stody, and other
activities
that do not diminish water quality, generate undue noise, promote erosion, damage or threaten wildlife habitat
or
communities of raTe plants, or otherwise degrade or prevent the public's enjoyment of the land1s special
attributes.
. Amend Section V.R. to include the Open-Space District.
. Amend Section V.D. to include the purpose of the Open-Space District.
14. OS Open-Space District
a. To protect from inappropriate use or overuse those natural environments that are unique to Arden
Hills, to
Ramsey County and to the Twin Cities region as a whole.
b. To provide opportunities for the public to experience, understand and enjoy the natural treasures that
exist
within their community.
c. To provide opportunities for recreational pursuits that have minimal effect on the natural environment,
such as walking, hiking, bicycling, canoeing, nature study and other non-disruptive activities.
d. To provide relief from the built environment.
e. To preserve rare large, renmant open spaces of 1,000 acres or more.
. Amend Section V.E. to include a list of uses that may be acceptable within the OS District.
Antenna, dish or tower
Club or lodge
Public use
Research
Utility distribution line
Utility transmission
SA
S
S
S
S
S
.
Amend Section V. F. to include district requirements for the OS District.
I. Minimum lot area
3. Minimum lot size
4. Height (ft.)
5. Floor area ratio (F .A.R.)
6. Lot coverage by structure(s)
7. Minimwn landscape lot area
8. Minimum building setbacks (ft.)
1000 acres
NA
35
NA
0.2%
1%
NA
.
Add Section V.M. to include Special Requirements for the OS Open-Space District.
M. SPECIAL REQillREMENTS FOR THE OS OPEN-SPACE DISTRICT
I. Procedure. The application and the administrative and review procedures established in Section VIII,
Special Use Permits, and in Appendix A, Procedural Manual, shall be followed for all development
that
involves new building contruction, modification of a building's exterior, or any modification of the
site,
including construction of trails, canoe landings and other recreational facilities. The prescribed
procedures
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may be modified by the City to allow planning flexibility and to encourage cooperative dialogue
between
the applicant and the City. The procedures shall apply to all applicants, including functional areas
within
the City government of Arden Hills.
2. Permitted Uses. Permitted uses arc allowed as specified in Section V, E, for the OS District.
3. Special Guidelinesfor Development Within the OS District
a. No site alteration or activity shall be permitted that contributes to or encourages soil erosion. Such
alterations and activities may include grading, construction of trails in areas with poor soil
conditions, use of the land or unpaved trails by off-road vehicles or mountain bicycles, etc.
b. No site alteration or activity may degrade the natural form or quality of any wetland nor of any
other
significant natural feature, such as a kame, pothole, grove or stand of old-growth trees, etc.
c. No site altcration or activity may damage, remove or destroy identificd habitat for endangered,
threatened 0' rare animal or plant species.
d. Building construction shall be limited to areas within three hundred (300) feet of points of public
access and public parking areas to limit disruption of sensitive areas. Buildings shall be
constructed of
and faced with primarily natural materials (wood, stone, stucco/adobe, etc.) and designed so as to
integrate with the site's natural features.
AR Arsenal Redl!l'elopment District
The Zoning Ordinance should be changed as follows:
. Amend Section V.B. to include the AR Arsenal Redevelopment District.
. Amend Section V.D. to include the purpose of the AR District.
15. AR Arsenal Redevelopment District
a. To implement that part of the Arden Hills Comprehensive Plan known as the TCAAP Framework
Plan,
as amended, and other, subsequent plans for redevelopment and reuse of the TCAAP property.
b. To provide for and guide the long-term redevelopment and reuse of the Twin Cities Army
Ammunition
Plant (TCAAP).
c. To ensure that redevelopment ofTCAAP, which may occur piece by piece over a span of several
decades,
is compatible with and sensitive to existing development on adjacent sites and previous development
on
the TCAAP site itself.
d. To provide the City of Arden Hills with appropriate mechanisms whe,eby the City can review, guide
and
ovcrsee all proposals for development of any portion of the TCAAP site not specifically included
within
another zoning district.
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Amend Section V.E. to include a list of uses that may be acceptable within the AR District.
Agriculture
Antenna, dish or tower
Boarding house
Business service
Clinic
Club or lodge
Club, sports and fimess
Commercial recreation
Day care/residential facility
Dog kennel
Dog run
Drive-in business
Dry cleaning/laundry
Dwelling
Financial institution
Garage, truck
Home occupation
Hotel/motel
House of worship
Institutional housing
Land reclamation
kfanufacturmgandprocessmg
kfining
kfanufactu~dhomepark
kfortuarylJUneral home
kfultiple-use operation
Nursery
Office
Personal service
Public use
Research
Research animals
Restaurant
Restaurant, fast food
Retail sales and service
Service station
School (general, special)
School, higher education
Storage, exterior
Studio
Theater, indoor
Utility distribution line (UG only)
Utility substation
Utility transmission (UG only)
Vehicle leasing and rentals
Vehicle sales and service
Warehousing
SA
SA
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D
S
SA
SA
SA
D
D
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D
D
D
D
D
D
D
D
D
D
SID
D
D
D
D
D
S
D
SA
D
D
P
SID
S
D
D
D
. Amend Section V.F. to include requirements for the AR District.
There are three potential ways to handle this. One would be to list requirements for the AR District, exactly as
they are listed for all other use districts. The second would be to treat the AR District as a PUD/SUP District
and
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specify only general parameters. The third would combine these approaches, treating the AR as a PUD/SUP but
also specifYing a minimum project area of 25 acres.
The consulting team recommends taking this third approach.
. Add Section V.N. to include Special Requirements for the AR Arsenal Redevelopment District.
N. SPECIAL REQUIREMENTS FOR THE AR ARSENAL REDEVELOPMENT DISTRICT
I. Procedure. All property within the AR Arsenal Redevelopment District will be developed using the
techniques described in Section V.L., PUD Planned Unit Development Overlay District (PUD
District).
The applicable underlying zoning shall conform generally to the land-use configuration, as amended,
that
appears in that portion of the Arden Hills Comprehensive Plan known as the TCAAP Framework Plan.
2. Special Regulation. Property zoned as AR Arsenal Redevelopment District shall be developed using
project areas of no less than 25 acres.
B. Potential Change in TCAAP's Status as a Military Installation
The Federal Base Realignment and Closure Assistance (BRAC) legislation (10 U.S.c. 2687 et seq.) and interim
fmal regulations (32 CFR parts 90, 91) dermed the formal process under which U.S. Department of Defense (DOD)
facilities no longer needed to fulrill a DOD mission are identified for disposal, by transfer or sale, to other Federal
Agencies, preferred public users and/or the private sector. DOD facilities were designated for disposal by the Base
Closure and Realignment Commission, based on recommendations from DOD. Several rounds ofBRAC closures
were announced in recent years, including 1995, approved by the Commission and forwarded to the president.
The BRAC process paralleled the General Services Administration (GSA) facilities disposal process, except that the
Department of Defense, not GSA, was responsible for all land screening and disposal decisions. TCAAP has been
subject to the GSA facilities disposal regulations because it is not designated as a "base" by the Department of the
Army. This is surprising, because many other similar installations -- munitions manufacturing and storage facilities -
_ around the country are considercd to be "bases" and therefore subject to closure under BRAC guidelines. (A list of
some of these facilities appears in the appendices.)
On December 31, 1995, the Base Closure and Realignment Commission completed its assignment and was
dissolved. Therefore, it is no longer possible to request BRAC designation for TCAAP.
TCAAP's status is unfortunate for the City of Arden Hills, for this reason: If the facility had been designated for
realignment or disposal under BRAC, DOD would have been required to establish a community-based task force to
plan for the reuse and redevelopment of the facility. The local planning process would have become determinative
of the reuse potential for the DOD facility, subject only to DOD concurrence.
Furthermore, in 1994, the so-called Pryor Amendment was adopted, creating a new priority conveyance option for
BRAC facilities, known as an Economic Development Conveyance (EDC). The Pryor Amendment allows a DOD
facility to be transferred directly to a Local Redevelopment Authority (LRA), "for consideration at or below fair
market value..." This conveyance option is in addition to cxisting conveyance options for health and education,
public airport, and related purposes. The LRA must be the entity responsible for the proposed redevelopment
activity and be rcgistered with DOD's Office of Economic Adjustment. DOD can make an economic development
conveyance of BRAC facilities to a requesting community.
In order to seek an EDC, the LRA must first complete a reuse plan for the facility, supported by a business plan
confmning the economic viability of the proposed reuse plan. If the BRAC facility has immediate reuse potential
and is free and clear of environmental problems, DOD must negotiate a sale at fair market value to the local
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redevelopment authority. If the subject facility does not have immediate reuse potential, the EDC can be completed
at little or no cost to the LRA so that it can expedite clean-up and redevelopment opportunities. If and when
portions of the conveyed facility are sold for private redevelopment, DaD shares in the proceeds of the sale on a
negotiated basis.
The advantages to the local community of these provisions are clear.
Obtaining BRA C-like Regulations for TCMP
The City may still pursue special federal legislation requiring that TCAAP be excessed under rules exactly like
those ofBRAC, including the Pryor Amendment. This effort would require the concurrence of the Minnesota
congressional delegation and, most likely, the support ofDOD and Alliant Techsystems.
A full description of the BRAC legislation, Pryor Amendment and McKinney Act amendments appears on the next
few pages.
Economic Development Conveyances and the McKinney Act under the Base Realignment and
Closure Act
The closure of military facilities throughout the United States has created both economic hardship and opportunity
in affected communities. To ease the transition of property from the Department of Defense (DOD) to local
government or private entities, Congress has adopted policies aimed at speeding up the economic recovery of
communities affected by base closures or realigrnnents. Recently, Congress has adopted new policies which give
the DOD authority to transfer property to Local Redevelopment Authorities (LRA) at or below fair market value. I
The DOD has implemented this authority by creating a new method of conveyance referred to as the "Economic
Development Conveyance (EDC)." Under an EDC, DOD may transfer property to an LRA at or below fair market
value, for purposes of economic development. The purpose of the EDC is to place the property into the hands of the
community as soon as possible to help spur economic redevelopment.
At the same time as the Department of Defense was promulgating the procedures for an EDC, Congress amended
the Stewart B. McKinney Homeless Assistance Act.2 Prior to this amendment, the McKinney Act provided
homeless assistance groups prioritized preference in obtaining federal property and facilities no longer needed by
the federal government. The new amendment specifically excludes from the Act's coverage any facility or property
located on a military installation closed pursuant to the Base Realignment and Closure Act3. Instead, Congress
provided new procedures in the Base Closure Community Redevelopment and Housing Assistance Act of 1994, for
LRA's to follow to ensure consideration of the needa of the homeless.
Economic Development Conveyances
The fIrst step an affected community needs to take once an installation has been designated for closure4 is to create
a Local Redevelopment Authority (LRA).5 The LRA should consist of representatives from those jurisdictions with
I See Title XXIX of the National Defense Authorization Act for FY 1994, ~2903.
242 V.S.C. ~ 1141.
3 10 V.S.C. 2087.
4 This memorandwn assumes the installation in question has been properly designated for closure by Congress.
5 10 V.S.C. 2087 dermes a "redevelopment authority" as any entity, including one established by the state or local
government, recognized by the DOD as the entity responsible for developing or implementing the
redevelopment plan.
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zoning authority over the property. Once the LRA has been established, it should apply to the Secretary of Defense,
Office of Economic Adjustment, for recognition. Once recognized, the LRA will be the sole entity recognized by
the DOD in negotiating the transfer or otherwise disposing of the closed military installation.
Once the LRA has been established and a redevelopment plan adopted and approved,6 the LRA can began to
consider applying for an EDC. An EDC can transfer as little as one building or facility or as much as the entire
installation. However, the DOD has stated that LRA's should use an EDC to obtain large parcels of the affected
installation, rather then individual buildings. The income received from some of the higher value property should
be used to offset the maintenance and marketing costs ofless desirable parcels. To spur economic development, the
large parcels must be used to provide an income stream to assist the long-term development of the property.
When the LRA has determined which parcels of the installation it wants to receive through an EDC, it must submit
an application to the DOD for the property. The application must contain the following information:
1. An explanation of why an EDC is necessary for economic development and job creation.
2. A copy of the adopted redevelopment plan.
3. A project narrative including the following:
a. A general description of the property requested.
b. A description of its intended use.
c. A description of the economic impact of closure on the local communities.
d. A description of the rmancial condition of the community and the prospects for redevelopment of the
property.
e. A statement of how the EDC is consistent with the overall redevelopment plan.
4. A description of how the EDC will contribute to job creation including the projected number, and type, of
new jobs it will assist in creating.
5. A business and development plan including such elements as:
a. A timetable, phasing plan, and cash flow analysis.
b. A market and rmancial feasibility analysis describing the economic viability of the project.
c. A cost estimate and justification for infrastructure and other investments needed for development of the
EDC parcel.
d. Local investment and proposed fmancing strategies for the development.
6. A statement of why other types of transfers, such as public benefit transfcrs, public-bid transfers, or
negotiated sales transfers, cannot be used to accomplish the desired economic and job creation goals.
7. If the transfer is requested for less then fair market value - with or without initial payment at time of
transfer- then a statement should be provided justifYing the discount. The statement should include the
type and amount and form of the proposed consideration, a payment schedule, the general terms and
conditions for the conveyance, and the projected date of the conveyance.
8. A statement of the LRA's legal authority to acquire and dispose of the property.
Additional information may be rcquested by the DaD to allow for a better evaluation of the application.
Once the application has been evaluated and approved,7 the DOD has the discretion and flexibility to enter into one
of two typcs of agreements. The fIrst type of agreement is where the consideration is within the estimated range of
present fair market value, as determined by DOD. Under this type of agreement, the Secretary can be flexible about
terms and conditions of payment, and can provide rmancing on the property. Methods of payment can include a
shariog in the gross or net cash flow, deferred payments, mortgages or other rmancing arrangements.
6 A redevelopment plan is dermed as a plan that is agreed to by the redevelopment authority and provides for the
reuse or redevelopment of the real property. It is within this redevelopment plan that the changes provided by
the Base Closure Community and Homeless Assistance Act of 1994 take cffect. The procedures provided by
that Act and those necessary for having the plan approved are discussed in the second portion of this
memorandum,
7 The governing regulations provide a detailed list of the different factors the DOD should consider in determining
if an EDC is appropriate in a given situation.
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The second type of agreement the Secretary may enter into is one in which the consideration is below the estimated
range of fair market value, where proper justification is provided. . If the DOD fmds that a discount will be
necessary to foster local economic redevelopment and job creation, they can transfer the property for less then the
estimated range of fair market value. Again, the terms and conditions of payment are negotiable and the DOD is
given broad discretion.
Effect of the Base Closure Community Redevelopment and Homeless Assistance Act
In September 1994, Congress amended the McKinney Homeless Assistance Act by excluding from the Act, federal
property located on military installations closed pursuant to the Base Realignment and Closure Act. In its place,
Congress promulgated the Base Closure Community and Homeless Assistance Act of 1994.8 The new Act changes
the preferential priority that providers for the homeless receive under the McKinney Act. Under the McKinney Act,
providers for the homeless are allowed to independently request property prior to the redevclopment authority
drafting its redevelopment plan. However, under the new Act, the homeless providers no longer receive a priority
position. Rather the redevelopment authority need only consider the needs of the homeless when drafting a
redevelopment plan. To safeguard the interests ofthe homeless, the Secretary of Housing and Urban Development
must approve the redevelopment plan before the plan can be implemented.
The following procedures are necessary to comply with the new requirements of the Base Closure Community and
Homeless Assistance Act of 1994:
I. Once an installation has been designated for realigmnent or closure, the Secretary of Defense (DOD) must
designate those properties on the installation which are surplus or excess and publish their general
description in the Federal Register and a newspaper oflocal circulation;9 furnish them to the Secretary of
Housing and Urban Development (HUD); and furnish them to an LRA (once recognized).
2. Upon recognition of an LRA, the Secretary must publish in the Federal Register and in a newspaper oflocal
circulation information on the LRA.IO
3. State and local goverrunents, representatives of the homeless or other interested parties located in the
community may then submit to the LRA a notice of interest in listed properties. The notice must describe
the need of such organization for the property.
4. The LRA may assist interested organizations in evaluating available properties for their use. The LRA must
also undertake "outreach efforts" to inform representatives of of those otherwise interested in the homeless
of the availability of properties or facilities. I I
5. The LRA must establish a deadline for submission of notices of interest and publish it in the Federal
Register and a newspaper of local circulation. The deadline must he no earlier then three months but no
later then six months after the DOD has published its list of available facilities.
6. The LRA may, after the deadline has passed, prepare a redevelopment plan for the installation. The LRA
must, in preparing the redevelopment plan, consider the interests of homeless assistance groups or other
interested parties.
7. The LRA and representatives of the homeless must, in connection with the redevelopment plan and if
appropriate, enter into legally binding agreements that provide for the use of buildings and property on and
off the installation. Such agreements must contain a reversion clause which provides for the return to the
LRA of properties provided to assist the homeless which cease being used for that purpose.
8. The LRA must complete the redevelopment plan no later then nine months after the deadline established for
submission of notices of interest.
9. The LRA must provide a public comment period prior to submitting the report to the DOD or HUD.
8 See 10 U.S.C. 2087 (note).
9 The term excess means those properties or facilities not needed or wanted by the Department of Defense. The
term "surplus" means those properties or facilities not wanted or needed by any other Federal Goverrunent
agency.
10 Steps I & 2 do not require any action by an LRA. They are provided merely to keep the entire procedure in
context.
II The statute does not derme "outreach effort."
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10. The LRA must submit the redevelopment plan, after public comment, to the DOD and HUD, for approval
with the following additional information:
a. A copy of the plan and any public comment received by the LRA.
b. A copy of each notice of interest received and a description of the manner, if any, in which the plan
addresses the interest. If the plan does not address the interest, the LRA must provide an explanation
for not considering the interest.
c. A summary of the "outreach" taken by the LRA.
d. A statement identifYing the homeless assistance group the LRA consulted in adopting its redevelopment
plan, if any, and the results of such consultations.
e. An assessment of how the plan balances the expressed needs of the homeless and the need of the local
connnunity for economic redevelopment.
f. A copy of any agreements the LRA proposes to enter into with representatives of the homeless.
II. HUD must review the plan within 60 days of submission. Congress has directed HUD to defer, as feasible,
to the rmdings and decisions of the community as reflected by the LRA.
12. If HUD rejects the redevelopment plan, it must provide an explanation of that detemrination and a
statement of the action( s) the LRA must take to address that detemrination.
13. Ifnecessary, the LRA must submit a revised plan to HUD within 90 days after receiving HUD's rejection.
14. Once the DOD receives notice that a redevelopment plan has been approved, it may dispose or the
buildings and property identified in the plan as available to assist the homeless directly to the
representatives of the homeless, or to the LRA, on behalf of the homeless. The disposal may be without
consideration.
Conclusion
An Economic Development Conveyance provides an expedited transfer or portions or all of the real estate of a
closed military installation to a Local Redevelopment Authority. This expedited process allows the LRA to have an
earlier and stronger say in how the property will be used to spur economic development within the community.
Additionally, the changes made pursuant to the Base Closure Community Redevelopment and Homeless Assistance
Act of 1994 allow the LRA to balance the needs of the homeless and other interested agencies with the need for
economic rccovery within the community. This balancing is done duriog the creation of the redevelopment plan
and intentionally provides for an early window of opportunity for organizations acting on behalf of the homeless.
While the representatives of homeless organizations no longer have priority in acquiring surplus or excess
goverrunent property located on closed military installations, their needs are protected.
C. Continued Planning for the Reuse of TCAAP
Preparation of the framework plan represents only the frrst phase of planning needed to adquately chart TCAAP's
future.
Immediate (1996) planning activities should focus on five items:
(I) Working with the Metropolitan Council and other regional and state agencies on resolving systems-related
issues, such as highway configurations and capacities.
(2) Working with Ramsey County and the MNNational Guard on better derming the size, location and
configuration of the potential joint public works facility and, if appropriate, preparing a concept plan for
the site.
(3) Developing open-space and recreation plans for areas designated as open space and parks. Four key areas
should reccive detailed attention: the Marsden Lakelkame open-space preserve; the City park on Lexington
north of the Army Reserve Center; the four-community ballfields at the north end of the site; and the Rice
Creek Trail. This planning effort should also designate desirable trail linkages and other connections
within,
between and among the open-space areas (e.g., design of the drainage system that links the kame on the
east to Rice Creek on the west).
(4) Developing a master plan for the village center and SunfIsh Lake areas. Consideration should be given to
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municipal facilities, an interpretive center, a new school, retail and service uses, higher~density housing and
all natural-resource protection needs (e.g., protecting the shoreland and water quality of Sunfish Lake).
(5) Prepariog development and design guidelines for all areas within the site. These guidelines should address
general intensity of development, internal road connections, roadway treatments, architectural standards,
landscaping, fencing and screening standards, natural-resource protection rules, additional land-use
restrictions or incentives (e.g., related to housing densities and/or price ranges), and whatever else is
appropriate to ensure high-quality redevelopment of TCAAP.
Should TCAAP be granted treatment as or as if it were a BRAC site, additional planning will be needed:
(6) Setting up a Local Redevelopment Authority capable of taking on redevelopment of the site.
(7) Developing a business plan and development-phasing plan for all developable areas within the property.
This plan should include a detailed marketing strategy and estimates of property values both bcfore and
after clean-up and demolition.
(8) Developing cost estimates for infrastructure and other investments needed to support site redevelopment.
(9) Prepariog a financial strategy for absorbing the costs associated with site redevelopment.
D. Fund-Raising Strategies and Efforts
The planning activities called for in Section VI.C cannot be undertaken without resources. The City must continue
to search out and obtain the funding it will need to "digest" TCAAP, particularly in the early stages of
redevelopment.
A number of resources may be tapped as part of this effort:
For systems planning The Metropolitan Council offers planning loans of up to $50,000. This particular application
would be best-suited to use of such funds. Although this would be a stop-gap measure, since the loan would
eventually have to be repaid, it could provide interim funding that could be repaid from other funds.
For the joint public works facility Ramsey County may be the largest user of this facility, but its location in Arden
Hills on a prime development site gives the City a larger stake in how the facility is developed. Nonetheless,
collaborative funding among the City, County and National Guard would be in order. Funding may also be available
from the state.
For preparation of park plans and park construction Contributions from the MN Department of Natural
Resources, Ramsey County, and adjacent conununities for specific portions of the site. The "active recreation" area
shown in the framework plan may be developed privately or as a public-private partnership, for example as a golf
course within a residential development. The National Guard has offered to develop the joint ballfields facility
shown in the north-western part of the site as an exercise for its engineers. Other lIin-kind" contributions and
services may be tapped for development of other portions of the site, even before an official declaration of property
excess is made.
For all other planning efforts
. Federal funding should be pursued in two ways: as part of special legislation to get BRAC rules applied to the
closing ofTCAAP, and in the form of a second application to the Economic Development Administration. The
amount of money requested from each of these sources should be higher than the $250,000 requested from the
EDA in 1995 -- at least $500,000.
. State funding should be pursued as well. There are a number of avenues through which this might occur:
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special legislation, clean-up funds (assuming EPA priorities can be changed), Metropolitan Livable
Communities Act funds, and others. Among these, the least risky from the City's viewpoint would be special
legislation; other funding sources would require submitting applications in competitivc environments that might
not favor Arden Hills.
The key to successful fund-raising lies in the City's willingness to continue its practice of communicating regularly
with all the participants in the planning process as well as with parties that might have a role in excessing or
redeveloping TCAAP, including:
the Cities of Shoreview, Mounds View and New Brighton;
Ramsey County (highways, parks and public works in particular);
Alliant TechSystems;
the MN National Guard and US Army Reserve;
AMCCOM (US Army) in Rock Island, IL;
the office of Governor Arne Carlson;
the US General Services Administration;
the state agent for the US Economic Development Administration;
the City's state legislative delegation;
the City's federal legislative delegation (Congressman Vento and Senators Grams and Wellstone);
others whose interest in TCAAP or potential influence may assist in the City's cause, such as The Design
Center for Urban American Landscape (which showed TCAAP as a special link in its study of regional
environmental constructs); other state legislators; other conununities with similar experiences; etc.
Through this communication, the City will learn of and generate new opportunities for joint ventures, joint pursuit
of funding at the state or federal levels, lobbying initiatives, loan and grant applications and potentially interested
developers. It will also stay updated regarding activities at the federal level, particularly within AMCCOM, that will
afrect the eventual timing and nature of the excessing process.
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