Public Park at the Upper Harbor Terminal Concept Plan Draft - Fall 2021
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Public Park at the Upper Harbor Terminal Concept Plan Draft Fall 2021
Acknowledgements Table of Contents
MPRB Park Community Advisory Committee Collaborators Introduction 5
Land and Community Acknowledgement 6
Members City of Minneapolis: Erik Hansen, Hilary Holmes,
Purpose and Intent of Concept Plan Document 8
Ann Calvert, Hilary Dvorak, Nathan Koster,
Robin Lewis, Chair Relationship to Other Plans 9
Alexander Kado, Ahmed Omer, Shauen Pearce,
Ben Oswald, Michelle Shaw, Teqen Zéa-Aida, Eva Kelly Muellman Upper Harbor Terminal Site 10
Bailey, Tom Dunnwald, Alexis Pennie, Aric Arneson,
Mississippi Watershed Management
Colleen O’Connor Toberman, Jennifer Webb, Planning Process 15
Organization:
Brandon Burbach, Georgianna Yantos, Sue Pilarski Park Planning Process Timeline 16
Dan Kalmon, Bruce Jacobson, Brett Eidem
Former Members: Mysnikol Miller (Vice-Chair), Engagement Approach 16
United Properties: Brandon Champeau,
Adam Cameron, Jamey Erickson Community Advisory Committee 17
Tom Strohm
Community Build 20
Project Team First Avenue Productions: Dayna Frank
Pillsbury United Communities and Public Policy Project Vision 23
MPRB: Julie Aldrich, Emma Pachuta, Kate Lamers, Project: DeVon Nolen, James Trice The Promise and Challenge of New Parkland 23
Crystal Passi, Francisca Pass
Values 26
Perkins&Will: John Slack, Vanessa Eickhoff
Program Model 34
Members and attendees of the Above the Falls
Agency Landscape & Planning: Gina Ford, Park Design Principles 36
Community Advisory Committee
Matthew Macchietto, Susannah Ross
Barr Engineering: Nathan Campeau, City of Minneapolis’ Upper Harbor Terminal Park Design Concept 39
Michelle Kimble Full Park at UHT 39
Collaborative Planning Committee (UHT CPC)
Toole Design Group: Ciara Schlichting Primary Park Features 40
Green Zone Task Force Members River Corridor Restoration 51
106 Group: Saleh Miller, Erin Que
Dakota and Indigenous Connections 57
Juxtaposition Arts: Sam Ero-Phillps, Niko Kubota, Neighborhood Group Participants
Planning for Evolution 60
Kristen Murray, Roxxanne O’Brien, Robbie Seltzer,
Community Design Studio Teaching Artists and Land Use Coordination 61
Countless public participants who attended
Youth Apprentices, 2017-2021
meetings, stopped at events, answered surveys,
Operations and Maintenance 65
The Musicant Group: Max Musicant, Ella Rasp sent emails or letters, made phone calls, talked
Capacity Building 65
Project for Public Spaces: Priti Patel with neighbors, answered doors, toured the site,
Operations and Maintenance Cost Implications 71
and contributed their wisdom, insight, and time to
Healing Place Collaborative: Denise Nelson,
Ethan Neerdaels their community.
Implementation 73
Minneapolis Parks Foundation: Paul Bauknight And thank you to all the participants yet to come Opportunities for Investment 74
MPRB Teen Teamworks 2021 as engagement will continue as the park is built Prototyping Products and Methods 76
and the vision is realized. Park Programming 78
Budget: Current 80
All quotes were used with permission from
Amending this Plan 81
community members; however inclusion does not
indicate endorsement of the entire plan.
Appendix
Introduction
This document expresses the park program and conceptual design for
19.5 acres of new Mississippi Riverfront parkland at the Upper Harbor
Terminal (UHT) in north Minneapolis. Dedication of this new parkland will
be the largest single addition of land to the Minneapolis park system in
decades. With a mile of riverfront in what has been a heavy industrial
zone of the city, this new parkland will be a substantial contribution to the
broader vision of transforming the riverfront through North and Northeast
Minneapolis from private to public.
Parkland proposed for UHT is within the park boundary of the Above the
Falls Regional Park; the newest regional park under the jurisdiction of the
Minneapolis Park & Recreation Board (MPRB). The master plan for Above
the Falls calls for methodically purchasing properties necessary to establish
the adopted park boundary on both sides of the river and, as funds allow,
develop parks and programming to create an interconnected park, trail
and parkway experience for north and northeast Minneapolis residents.
The parkland at UHT is in an area poised for change. The industrial land
uses between I-94 and the Mississippi River will inevitably transform in
coming decades as the city grows and evolves, the MPRB has already
acquired other properties or parkland creation near UHT and, the UHT
property itself is transforming from a City of Minneapolis industrial terminal
to a mixed-use redevelopment district.
The several-year, community process to conceptualize parkland at UHT
has been a case study for how to position parks as a tool for good in
addressing vital topics of gentrification, racial equity and the creation
of welcoming public space for all. As the planning process unfolded the
COVID-19 pandemic hit, uprisings for racial injustice emerged and tragic
events of climate crisis were headlines. These society-altering conditions
highlighted, even more, the urgency to create multi-dimensional parks of
service to very real community needs.
This mile of new parkland at UHT presents opportunities to ponder and
address deep questions about the responsibility of parks. The results are no
doubt imperfect but hopefully make positive strides and are positioned to
allow for continued evolution and improvement.
4 5
Introduction
Land and Community Acknowledgement North Minneapolis
North Minneapolis, generally defined for this project as the area
north of I-394 and west of the Mississippi River, is home to the The park at the UHT should be
most people of color by sector in the city. Currently 69.9% people for all community members
of color, the Northside has historically been an area with lower and all Northside residents but
access to wealth and opportunity; much of the land area is must also acknowledge that
covered by areas of concentrated poverty (ACP50s). For decades
American Descendants of
it was one of the few places African-American people could
own homes and businesses. Through the early and mid-1900’s, Slavery (ADOS), Dakota, and
the MPRB used park acquisition and development funding tools Black, Indigenous, and People
including the Elwell Law that assessed costs to area property of Color (BIPOC) have dealt
owners. While this practice expanded park investments across with the greatest burdens of
the city as a whole, it led to inherent inequities in park investment
structural racism,
with wealthier and/or more willing parts of the city gaining more
park amenities. This history in park investment combined with disinvestment, and
other non-park activities including racially-restrictive covenants, environmental injustice. In this
red-lining, construction of I-94, and predatory lending have left document, the term Northside
a legacy of damage and unequal investment in poorer areas residents or community
of the city.
members is intended to be
broadly inclusive, but to
“Of all the parks in Minnesota, I can’t think of
emphasize these groups.
Map courtesy of Dakota Goodhouse, Standing Rock Sioux Tribe one that is a Black Space. It is time to make one.”
Dakota Land
―BLACK OUTDOOR AND ACTIVE LIVING ADVOCATE
As an agency, MPRB is seeking to build a culture and practice of Mnisóta Makhóčhe (Minnesota)
land acknowledgment. The 2021 Comprehensive Plan process is the homeland of the Dakota
(in draft form at the time that this document is posted) included people. The Dakota have lived
research and engagement on how to lift and support Indigenous here for many thousands of Minneapolis
voices in everyday work, throughout the agency and across
years. Anishinaabe people 100%
disciplines. North
reside here, too, and reached
Percentage of the Population
“It is important to acknowledge that we are on
67.7%
their current homelands after 75%
Dakota land, but also to acknowledge that a following the megis shell to
statement that is not followed by action is the food that grows on water
420,324
50%
36.4%
(manoomin, or wild rice).
31.4%
either meaningless or harmful.”
Indigenous people from other
27%
26%
19.8%
22%
19.1%
66,558
13.2%
―DEVELOPED WITH DAKOTA COMMUNITY MEMBERS Tribal nations also reside in 25%
15%
Many of the larger strategies and efforts are much broader than Minnesota and have made
any individual project, but clearly each project and process can innumerable contributions to
Total Under 18 People Of Language Income Public
contribute to system wide goals. Although these goals are still our region. Population Color Other Than Below Transportation
English Poverty Line
in development, staff have evaluated how the UHT project can
address input from the Comprehensive Plan work and other ‒Excerpt from The Land We’re On
by the Native Governance Center
projects in addition to the UHT.
6 7
Introduction
Purpose and Intent of the Concept Plan Document Relationship to Other Plans
The following park concept design document is the result of 1. The Introduction provides an The Upper Harbor Terminal has been studied as a part of many other plans over the last two decades.
years of engagement and work. Although there are some overview of the process, the Below are companion plans to this document that are critical in order to understand the full UHT project.
document, and context for the
key recommendations for park operations, staffing, and Many other documents, plans, and frameworks that have informed this plan including engagement
project
programming, the main objective of the planning process plans, technical studies, cultural contextual studies, and park area master plans are referenced in the
2. The Planning Process summarizes
was to guide physical park improvements. appendix.
how MPRB arrived at this plan
Specifically, this document is intended to: through community engagement,
Upper Harbor Terminal Public Art Master Plan
study and research, and technical
nj Define the general location and amenities of park analysis
improvements “All should be welcome at the UHT park, but it needs to be
3. The Project Vision is a look at the a Northside space. Everyone should know that they are on
nj Document and communicate the process and key themes that arose out of the
findings that led to these recommendations the Northside, and Northsiders should know that this is a
planning process
place for them”
nj Articulate key philosophies and ideas that can 4. The Park Concept Design ―COMMUNITY ADVISORY COMMITTEE MEMBER
contribute to future park choices summarizes the priority park
nj Set a framework for collaboration with outside principles and the physical park Juxtaposition Arts (JXTA) played in important role throughout the UHT
partners to support the goals identified design to support them park planning. Over several years the team led extensive engagement
efforts, participated in programming, planning, and design, and
5. The Operations and Maintenance
This document is divided into six parts. The Introduction provided valuable insight and leadership. As the planning team
section outlines recommendations
and Planning Process document the process, the Project for park staffing, programing, and transitioned from broad engagement, to a compiling and addressing
care. the many comments collected, it became apparent that the project
Vision and the Park Concept Design sections are staff
needed a specific interpretive effort. In the Public Art Master Plan,
recommendations for Board approval and to guide policy, 6. The Implementation pages provide
which is part of the park concept planning work, JXTA defined the key
and the Operations and Maintenance and Implementation guidance for the first phase of the
Northside storylines and recommended strategies for implementation.
park and future park decisions
Sections provide guidance for staff planning.
DEVELO
PMENT
OVERVIE
W
Manufac
turin
& Processi g, Producti
ng on
Upper Harbor Terminal Coordinated Plan
Urban Foo
Processi d Production &
ng
Future
Future Housing
Flexibili Parking with
Approximately half of the 48 acres at the UHT is to be public park,
Health ty Ramp and District
Commer Park
Wellnes
& cial Spa Ground Floor
s Hub ce
Commun
ity
Perform
the remaining land will be either development parcels or City of
ing Arts
Center
(CPAC)
Mixed-In
come, Affo
Minneapolis public Right-of-Way. City of Minneapolis Community
with Gro
und Floo rdable Housing
Space r Commer
Park cial
19.5 Mixed-In Senior
$500K-1M
Planning and Economic Development and Public Works Departments
come, Affo Housing
Acres of for Fam
New ilies with rdable Housing
Riverfro Commer Ground
nt Park Annual reve
commun nue to 520 cial Spa
ce
Floor
generat
ity entity,
ed by Firs
Proposed
Housing 300
Ave tick
eted eve
t Units Estimated Health &
have led collaborative planning processes in partnership with the
nts Livin
Wage Job g
s Wellness 45,000
Commun
ity Hub
Sq. Ft. Gro
und
Commer Floor
1,200
Commun cial/
ity Space
Estimated
Constru
$302M
UPPER ction Job Estimated
HARBOR
City’s Upper Harbor Terminal Collaborative Planning Committee,
| COORDI Created s Develop
NATED men
DEV ELOPME *Does not t Cost
NT PLAN (DR infrastructu include City
AFT) re and Park
costs
11
and the development team to create the Coordinated Plan. The
Coordinated Plan includes strategies and commitment to mitigate
and disrupt gentrification and displacement and increase access to
the site, i.e. community housing preference, City retaining the land
in public ownership, targeting housing at Northside incomes, job
preferences for Northside residents, physical improvements to access
the site, etc.
8 9
Introduction
Upper Harbor Terminal Site Site Context
Site History
For millennia the land along the Mississippi River
was a travel way within the land of the Dakota
where many different Indigenous Nations and
people met. After Euro-American colonization
and the creation of the currently known City of
Minneapolis, city residents established several
river related industries on the land. In the early
1900’s the land was converted to farmland, and
eventually purchased by the City of Minneapolis
with the purposes of establishing an upper port
as the head of navigation.
Henry Lewis: Falls of St. Anthony, Source: MNHS
Since the 1960’s the UHT has operated as an
inter-modal barge shipping terminal. In the
The park will be in the McKinley Neighborhood, about a quarter mile from the existing residential area,
following decades, the UHT and other riverfront
and two miles form downtown. Many current residents will be within a ten minute walking range of the
areas were divided from the existing residential
entryways to the UHT site at Dowling Avenue and 33rd Avenue, with an additional five minute walk to
neighborhoods by I-94; a barrier which exists
reach the rivers edge and park land. The park will also have direct connections to the Camden Business
today. The freeway construction displaced
District and North Mississippi Regional Park, although such connections cannot be completed without
many people from their homes and, along
future land acquisition.
with the heavy industry, is a symbol of the
environmental injustice experienced by people The UHT site is within the Above the Falls Regional Park and the Mississippi National River and
living in North Minneapolis. Recreation Area, one of the few urban National Park boundaries. Development within the park will be
St. Anthony Falls, Source: MNHS
guided by several zoning districts: the Shoreland Overlay District, the Floodplain Overlay District, and
In 2015 the Army Corps of Engineers closed the
the Mississippi River Corridor Critical Area.
St. Anthony Falls Lock which ended barge traffic
to the upper river and the City of Minneapolis The river corridor is an international flyway for a host of wildlife and immediately upstream North
began a new phase of planning for the UHT. Mississippi Regional Park includes acres of restored native vegetation. The UHT site, like much of the
industrial land to the south, does not contain significant ecological cover. There is a large heron and
egret rookery across the river and slightly downstream from the UHT.
More information about the requirements and review processes and the land cover can be found in the
AUAR document (link provided in the appendix).
The Destruction of Spirit Island, Source: MNHS
10 11
Introduction
Northside Green Zone and Promise Zone
The UHT property falls within the locally
Upper Ha
designated Northside Green Zone and Historic P
Upper Harbor Previous Studi
federally designated Promise Zone. The Terminal Location - 2007 Upper Mississip
Architectural/Historica
Minneapolis Green zone is a place-based and Company)
- 2017 Intensive Archite
Monolithic Domes Upper Harbor Termina
policy initiative aimed at improving health National Regis
Red Grain Elevator - Not listed in or deter
and supporting economic development Register of Historic Pla
- Entire UHT complex i
Overhead Conveyors listing in the NRHP as a
using environmentally conscious efforts in potential Upper Harbo
- Entire UHT complex i
eligible for listing in the
communities that face the cumulative effects Grain Elevators Local Landmar
- No current local land
of environmental pollution, as well as social, - Entire UHT complex i
local Minneapolis land
political, and economic vulnerability. Promise
Historic District
- Four Monolithic Dom
demolished) are recom
Zones are an economic development strategy
local Minneapolis land
Regulatory Re
intended to support low-income communities
- For the Public Park po
does not currently app
the project undertakin
River Structures permitting or funding.
throughout the country. There are many ways - The City of Minneap
an AUAR for the propo
venue at the site.
in which the park development aligns with the River Wall
goals of the two zones; converting blighted
industrial land and inaccessible riverfront to
public green space is a fundamental step.
Saint Anthony Pkwy
l St
shal
Mar
NE
Existing Conditions
Regulatory Process Overview
S aint Anthony Pkwy
The 48 acre UHT site consists of nine tax parcels, and is almost The eastern edge of the site is defined by the river, while the western edge is
1. Identify Historic Properties
Local
Landmark
a mile long and approximately 500 feet wide for much of it’s largely bound by an active rail line. Two parcels are situated between the rail line Previous
Studies
City of
Minneapolis
Minneapolis
HPC
City Council
33rd Ave N
length. Concentrated along the riverwall and near the end and I-94 along Dowling Avenue, but the entire park area is between the rail line If UHT is designated a local landmark,
No Local
Designation
of Dowling Avenue, the site contains industrial structures and the river. Overhead electrical transmission lines bisect the site. Across2. the river
Design Review and Assessment of Effects
Concept
is the Xcel Energy plant, and the other surrounding land uses are mainly industrial.
Preliminary
Design and City of Minneapolis Public Approved
Recommended UHT Historic District
linked to its function as a barging terminal. In addition to the
Approved
Assessment Minneapolis HPC Hearing Design
2nd St N Design
tN
1st S
of Effects
Dowling Ave N
Review and Revisions
riverwall, the structures include two barge docks and mooring
Washington Ave N
The overall character of the park site is industrial, outside of the structures it is
3. Mitigation (if required)
cells, three concrete storage domes (formerly four), a grain characterized by flat areas used§¨¦for storage or transport. The existing riverbank
4. Implementation of Design
N 3rd St
elevator complex, a conveyor system, office and scale pit, and slopes are steep and composed largely of dredged materials and debris. There
Dowling Ave N
36th Ave N
35th Ave N
many small support buildings and structures. There are not is little upland vegetation and the vegetation on the slopes are mainly stands
4th St N
Upper Harbor Terminal
34th Ave N
37th Ave N
locally or nationally designated historic buildings, structures, of Siberian Ash and Buckthorn with some higher quality Cottonwood Trees near
archaeological sites, or traditional cultural properties within the waters edge. Environmental testing shows low amounts of soil contamination
the Upper Harbor Terminal site. The Upper Harbor Terminal with debris being the main component. Much of the debris is evident in the large
site has been identified as potentially eligible as a local City of chunks of concrete across the site and along the rivers edge.
Minneapolis historic district. The City is further evaluating the
The Alternative Urban Areawide Review containers a much more extensive
site under local designation criteria.
summary of the UHT site and context; references can be found in the Appendix.
12 13
Planning Process
Although the Upper Harbor Terminal has been the site of
planning, visioning ,and speculation for decades, the current
process began in 2015. In 2019, with a park boundary
established by the city approved Upper Harbor Terminal
Concept Plan, the two agencies branched into collaborative, but
separately managed planning processes.
14 15
Planning
Planning Process Timeline Community Advisory Committee
The Community Advisory Committee (CAC) met
2015 – 2017 2017 – 2019 2019 – 2021 2019 – 2021
17 times as a group and many members engaged
UHT Pre-Planning Site Concept City Development MPRB Park
outside of CAC meetings. CAC meetings included
Engagement Planning Planning Planning
public participation and comment. While the CAC
nj Raise awareness of nj Bring community nj Collaborative Planning nj Community Advisory
served as a backbone for the planning work, the
upcoming project members to the site Committee Committee
members were not asked to represent their particular
nj Seek input into a search nj Engage on more specific nj Draft Coordinated Plan nj Focus Groups and
demographic or to serve as the sole voice of the
for a developer partner park and development and AUAR engagement Outreach
topics
community. The CAC was a deliberation group that
nj Build community nj Learning Tables nj Public Art Master Plan
offered valuable input and insight based on their
connections and inform nj Create an overall
nj Public meetings, nj Youth Prototype time, commitment, and longevity with the project.
an engagement plan concept and define a Throughout the process, CAC members felt
workshops, and Building
park boundary The two primary goals for the CAC were to that the adjacent development was critical to
nj Open houses, outreach
nj Public meetings and
attendance at meetings, nj Project meetings, recommend a concept plan for the overall park and how the park would function. In January, the
workshop days
outreach at events, expanded site tours, to prioritize what the first phase of improvements CAC approved a series of recommendations to
initial site tours, surveys outreach at events, door
should be. CAC members made several key the City’s Collaborative Planning Committee
knocking, surveys
recommendations throughout the project, including regarding the development impacts to
See Appendix for a more detailed timeline
a change to the park boundary early in the process. the park. Some of the key concerns for
Engagement Approach In addition to reviewing the community input CAC members where around the adjacent
gathered, the CAC advised on a program model for performance venue, and whether noise,
From 2015 – 2019 MPRB gathered substantial Believing that no single format works for all the park, draft park concepts, and an approach to congestion, traffic, and queuing would prevent
public input on the future park. MPRB collected people, staff continued engagement outside of balance the desire for park amenities with concerns residents from fully using the park. CAC
thousands of comments through dozens of the CAC as well. In 2019 MPRB hired community about green gentrification and displacement. members also felt that the park would largely
meetings and open houses, outreach events, site liaisons to assist staff in meeting with under- Although community members provided valuable serve the adjacent residences and businesses
tours, conversations in person, phone, or email, represented community members and introduced feedback in response to initial draft concepts, the and were concerned about who would live and
and hundreds of responses to online surveys. the project to existing work groups that could time did not seem right for a park design focused work at the UHT. Members were concerned
Much of this early engagement was centered provide insight and expertise. discussion and the project team transitioned to that plans for transit, affordable housing, local
in outreach to connect with people where they address other concerns. jobs, and other community benefits would not
Juxtaposition Arts (JXTA) was an engagement
were at and encourage general awareness and be implemented.
and creative partner throughout the process.
discussion.
As JXTA developed the Public Art Master Plan,
After such a widespread general engagement their team conducted many discussions and oral
“Adjacent development is important
effort, the project needed a place for ongoing and interviews that contributed to the overall project
because it will greatly impact who uses
focused discussion. MPRB Commissioners and a engagement. the park and whether current Northside
group of community stakeholders appointed a 17 residents and ADOS, Dakota, and other
member Community Advisory Committee (CAC) BIPOC users feel connected with the park”
that met regularly for two years.
―COMMUNITY ADVISORY COMMITTEE RECOMMENDATION
16 17
Planning
It is important to not oversimplify and frame
The CAC did not recommend design principles or a design as there was not consensus
on a primary project direction. Based on CAC input, staff identified three diverging the question around whether people want a
directions which are outlined below. Rather than vote on a recommendation, CAC
members elected to provide individual statements which are included in the Appendix.
park or not. A choice between nice things or
Staff assessed CAC discussions and conclusions, along with the engagement from risking displacement is not really a choice.
other community members of the years, in order to make recommendations and
compile this document.
1. Do not proceed with park 2. Proceed with cleaning up 3.Build just enough park Although some CAC members were Parks for All, the MPRB Comprehensive Plan project
development at this time the industrial site, restoring the to allow the site to safely uncertain about advancing the park, was running concurrently with much of the UHT park
land, and minimal circulation function as a public place, issues that were greater than any one planning. Staff shared information, resources, and
nj Developing a park will contacts between projects, and collaborated to link
advance the adjacent and improvements to make attract Northside residents, project impacted considerations about
work that was broad and systemwide with work at
development and cause a safe public space but do and support deliberate the UHT. Some CAC and community
the project specific level. Recommendations in this
displacement or other not proceed with further park programming and staffing. members felt that advancing the park document are specifically for the UHT project; the
negative impacts amenities Beyond basic improvements, would serve the developers more than Comprehensive Plan contains vision, values, goals, and
focus on site clean-up and Northside residents. strategies for the larger system.
nj It is premature to develop nj Maximize site clean-up and
a park until more anti- removal of industrial structures. environmental restoration.
displacement measures are Maximize site clean-up and nj Provide necessary
in place removal of industrial structures. infrastructure to support
nj Conduct discussions with nj Focus on environmental engagement at the park,
Dakota community leaders healing by restoring the as well as staffing and
and members to offer the land with vegetation, programming.
land back or leadership to stormwater management, and nj Physical improvements should
determine the outcome of the contaminated soil treatment. be adequate and flexible
project. enough to support commonly
nj Provide minimal circulation
nj Restart the park process to such as a riverfront trail, and requested experiences.
allow for Northside community necessary safety measures nj Maximize site clean-up and
leadership. environmental healing and
land restoration.
nj With dedicated budget
continue work with Northside
and Dakota community
members on more detailed
park development ideas
18 19Planning
Community Build
Goals of Site Furnishing Goals of Indigenous
Prototype Project Architecture Prototype Project
Staff sought ways to continue engagement and bring
community voices deeper into the design and construction nj Invest in local community nj Test a design, construction,
process. Particularly because gatherings and in-person members and organizations engagement, and programming
work had been restricted due to the COVID-19 Pandemic, nj Design site furnishings from process to deepen Indigenous
the team experimented with two new projects during the widely available materials collaboration and engagement
summer of 2021. JXTA led one process to design and build nj Establish a process to bring
nj Design site furnishings
several different types of prototype site furnishings for the appropriate for youth Green Team crews into
UHT. MPRB staff and Dakota team members led an internal construction construction projects with multi-
Green Team in learning about Indigenous architecture faceted learning
nj Create pathways for local
and practices and building a shade structure and other nj Design structures from
hiring to maintain and replace
small projects. widely available materials
furnishings
and appropriate for youth
nj Testing the site furnishings before construction
the actual project
nj Create pathways for local
nj Further engagement through investment to maintain and
design, construction, and testing replace shelters
furniture in public places
nj Testing shade shelter prototype
nj Create a brand for UHT and before the actual project
other Northside parks with local
design nj Create unique architecture for
the UHT and other parks that
nj Provide opportunities for team offer educational opportunities
to work closely together for about Dakota land
reciprocal learning
Juxtaposition Arts Enviro Studio
designing and building models for
Indigenous Architecture Green Team learning about Dakota architecture and practices and
benches, tables and chairs, picnic
building a sample shade structure
furnishings, and lounge chairs.
20 21Project Vision
“Welcome to North Minneapolis” Mural by Charles Caldwell
The Promise and the Challenge of New Parkland
Northside residents clearly expressed a
desire for access to the river, public green
space, and positive investment in their
community during the 2011 – 2019 planning
processes. The benefits of new park space,
transforming the current industrial land The park at the UHT
to an environmentally rich river corridor,
and addressing a serious recreational
could address existing
deficiency have captured the attention disparities, or could
and imagination of many people.
worsen them if it
However, the reality of implementing
contributes to rapid
significant new park amenities is more
complex. As land prices and the cost of cultural change and rising
living rises, well justified concerns about land prices that displace
gentrification and displacement have
RiverFirst and Above the Falls Key Findings: grown as well. People are concerned about current residents
financial and physical displacement, but
nj People want to EXPERIENCE and ACCESS the river
also about cultural gentrification and the
nj People want to RESTORE and IMPROVE the river loss of the Northside identity to wealthier
and Whiter residents.
nj People want EQUITABLE DEVELOPMENT
22 23Vision
Although the UHT property is the largest tract of
City owned land up for redevelopment, it is housed Definition of Gentrification:
in a much larger area between the I-94 and the Refers to the modification of a neighborhood,
river that is poised for change. There is potential typically due to an increase in “desirability”.
to alleviate existing disparities; but the possibility This change often brings increased property
that it will exacerbate them is real and profound. values, new and different businesses to the
area, and may be signaled by storefront
Because this area, including the UHT is divided
renovations, public works projects, or
from the existing residential areas by the freeway,
neighborhood “rebranding”. However, the
the risk is heightened that the land could develop increased wealth and economic gains are
a new identity with little relationship to the current not experienced equally be all residents.
residents. New residents are more likely to benefit while
existing residents are disproportionately
These concerns are a critical factor in shaping
burdened with increased property taxes, and
recommendations for the park. It is important that prices of food and necessities.
MPRB consider the park in the context of larger
forces in the area. It is important to understand,
that investment, even in amenities that are truly
wanted, may not be beneficial to community Definition of Displacement:
members who are vulnerable to negative impacts Refers to the forced relocation of a household
of change. FROM a neighborhood for reasons beyond
their control. Large-scale displacement across
Throughout the engagement period community
a neighborhood can change the community
members expressed a range of hopes, concerns,
demographically, economically, physically,
and desires for the park. This vision section and socially.
organizes the key findings into Values and a
Program Model. From the values that must guide all ―From MPRB Comprehensive Plan Draft
decisions made, for park experiences and design,
these recommendations offer a touchstone on how
this park can fulfill its promise.
“How do we make sure that the UHT really feels like a part the
Northside? We want people to come to the UHT and have a good
introduction to the Northside and the river, and not think that this is a
part of Downtown coming up the river or Northeast coming across.”
―NORTHSIDE RESIDENT
24 25Vision
Values 1. Slow Down the Process and allow for the park to evolve once more is known about the
Development of the larger area and how Northside community members are connecting with
Values guide the way MPRB approaches work “Adjacent development is the park.
and are a basis to evaluate future decisions. important because it will greatly The needs of Northside residents should drive the park design. Decades of systemic racism has led to a lack
Tactics and strategies change over time, but
impact who uses the park and of trust and there is tremendous uncertainly about the future of the area and who the park will serve. It is
holding these values close helps staff ground a premature to map out a long term plan; the park should be a place to experiment and adjust as needed.
project or process in the core mission defined
whether current Northside
through extensive engagement. residents and ADOS, Dakota, and a. Develop the park with the Just Green Enough or Slow Park approach with
For the purposes of this project
other BIPOC users feel connected a focus on local community needs. →
“just green enough” is a space
with the park” b. Maintain a Slow Park approach until it is better understood how the that serves the surrounding
adjacent development will be designed, implemented, and operated. community first and foremost
1. Slow down the process of park
‒ Allow for future options that allow MPRB to work with the City should and seeks to reduce the risks
development and allow for the park ―COMMUNITY ADVISORY of displacement or lack of
COMMITTEE RECOMMENDATION
they wish to explore alternatives to a privately operated multi-
to evolve once more is known about ownership by current Northside
thousand seat venue including options determined to be appropriate
the adjacent development and how residents. A park that is “just
in a public park. Noise, traffic, congestion, and crowds from the
Northside community members are green enough” is not intended
Community Performing Arts Center may impact use of the park.*
to mean either disinvestment
connecting with the park.
‒ The park should prioritize support for people living in deeply in a community or a low-
2. Prioritize park investments in people affordable housing and current Northside residents. The design and quality park or a low amount
operation of the park should respond to who lives in the proposed of green, vegetated space.
over infrastructure as a strategy
housing in the adjacent development.* Beginning with more basic
to combat gentrification and improvements is also known as
displacement ‒ The park should be supportive of businesses that are owned and the Slow Park movement and is
operated by Northside residents, that employ Northside residents, and an evolving strategy to combat
3. Maximize community options and
that have positive synergy with the park. The design and function of gentrification resulting from
control over park development the park should respond to who owns and works in businesses in the green space development.
by investing only in basic, flexible, adjacent development.* Slowing the rate of change,
and generally reversible park particularly if combined
c. Continue collaboration with the City, developers, and other partners to
improvements. with efforts to build local
achieve community goals. connections, can help avoid
4. Define this park as a Northside place d. Maintain a Slow Park approach until there is a better understanding of cultural gentrification. When
and for the people by honoring and how the larger area between the freeway and river may be changing. creating a new park, starting
with just enough features to
celebrating Northside people in multi- e. Maintain a Slow Park approach until current residents are comfortable support local use, allows the
layered ways that displacement is not a high imminent risk. park users to help shape more
5. Actively program and staff the park to f. Maintain a Slow Park approach until transportation barriers can be of the space after they’ve
gotten to know it. Future
build ownership, provide supportive addressed at each stage of park implementation.
park development could be
jobs and capacity building for “The Upper Harbor Terminal is g. Keep the park flexible and basic so that the park future is undetermined deferred unless community
Northside community members. not the first project to articulate and not a basis for speculative real estate investment. members feel improvements
6. Address larger issues that may community goals. Many projects will not add to the risk of
gentrification.
be outside of the immediate UHT set goals and make promises and *Edited from CAC Recommendation to CPC, see Appendix for full list.
See land use coordination section for more CAC Recommendations.
boundary, but impact work at this then do not deliver.”
park and elsewhere in the system.
―NORTHSIDE RESIDENT
26 27Vision
2. Prioritize Park Investments in People Over Infrastructure as a strategy to combat 3. Maximize Community Options and Control
gentrification and displacement. a. Approach park construction and
Developing, building, and operating the park itself should be part of a larger strategy to Environmental
funding so that the first phase of
of engagementjustice
rather than eyes
park improvements is continuation
build wealth and career driving skills for Northside residents. Creating the park at the
an end.
Sculpture + Murals
UHT is not the end goal; the park and related work should be a step toward addressing
Seek opportunities for people and
the existing racial inequities. These disparities are not limited to access to recreation
organizations to help build the park
and nature, but include income inequality, safety, career opportunities. The following The Northside community to
has done a
as a more collaborative approach
huge amount of organizing to reduce
tactics should be integrated into the park as a way to prioritize investment in people over the pollution that the community is ex-
community involvement.
investments in infrastructure: posed to, and to open up the riverfront.
b. Develop the park support
Publictoart at Upper Harbor could ac-
a. Create a job, career, and training intensive park, rather than knowledge this organizing, and tell
goals already defined by relevant
people about the work that’s still un-
a park designed for leisure with expensive physical amenities.
derway. It could
community led processes such also be
asa the
reminder to
nearby industry that the community is
b. Maximize investment in the North Minneapolis community paying
Northside Green Zoneattention.
and Promise
during the implementation process. Encourage Northside “Northside people absolutely Zone. • Symbolically saying to the polluters
Right here is where you can start to turn
in the area, “We’re watching you.”
business and organization participation, and provide deserve a nice neighborhood. c. First phase improvements shouldto be
it around. But you got to acknowledge
the past. You got to acknowledge
• Bringing awareness the fight
opportunities for participants to build skills. Find opportunities those pains, those things that have
But if you start by investing in against environmental injustice
adaptable. Communicate promises for
the Northside.
on
happened, those injustices in order to
to create cradle to career pathways through a variety of tools know what not to do again.
future actions into the park as a public
including mentorship and capacity building opportunities. the physical realm and not in • An opportunity to make a perma- - Princess Haley
nent monument on the land that has
accountability measure.
c. Leverage the construction process to establish a connection the people, they may never be and is being fought for.
d. Revisit full park concept design after Untitled, J.R.
to the park before it opens.
able to enjoy it.” community members can experiment in JXTA Public Art idea of Environmental Justice
―NORTHSIDE RESIDENT initial park spaces. If the goals for the Eyes symbolically watching
Upper Harbor Terminal Park // Public art plan 22
park are not being met, modify park
design and/or operations.
“With the Green Zones we’ve done a lot of work to
say what we want for environmental justice on the
Northside. We don’t want to restate these goals.
What we need is for every project that happens to
support these goals.”
―NORTHSIDE GREEN ZONE TASK FORCE MEMBER
28 29Vision
4. Define this Park as a Northside Place and for the People
While Minneapolis is on track to become majority BIPOC (Black,
Indigenous, People of Color) by 2040, the North Minneapolis
The industry has divided the Northside Juxtaposition Arts Northside Storylines
people from the River and left a legacy
neighborhoods have long been home to diverse communities.
of pollution and pain. The industry
Having the UHT park be a place welcoming to all, where all
should not be erased from memory
1. Histories of ecological harm and disconnection
communities can learn about Dakota land and Black culture, as or celebrated; the decades of work from this place – The River has been altered to
well as the Indigenous, Southeast Asian, African, and Latinx and by Northside people for environmen- benefit settlers, businesses and industry. The river
many different people that call North Minneapolis home means tal justice and the re-greening of the has the power to heal our communities but first we
balancing diverse voices and activities. space is what should be celebrated. need connection
2. Environmental justice work and vision - Industry
a. This park should honor and acknowledge the Dakota and K AT WE HAVE DIVERSE AND CHANGING d. Celebrate the diversity of the has polluted the water, soil and air. As community
R E PA R M IN A L
A FUTU ARBOR TER
DEFINITIONS OF SAFETY
Indigenous people through active support of Indigenous UPP E R H
A Black centered Listening Session,
led by Juxtaposition Arts
OUR FEELINGS OF SAFETY ARE OFTEN BASED ON OUR PAST EXPERIENCES AND
PERCEPTION OF THE WORLD. WE ALSO HAVE VARIED APPROACHES TO HOW WE
DEAL WITH FEELING UNSAFE.
Northside residents. organizing forces polluters to change and move
“Safety is a freedom to “For me, it’s like listening “There’s a big difference
voices, practices and treaty rights. Move beyond art and
In July 2020, Juxtaposition Arts hosted a listening session with Black Northsiders imagine... and to try to my intuition and between being a black
out, it’s critical that the Northside community is at
including youth, adults and elders, as part of the engagement process for the future new things. I think the my ancestors that keep man or a darker skinned
e. Dedicate budget to embed art and
public park at Upper Harbor Terminal. world is bigger when I’m me safe. So not like a woman and a light
safe. Safety to me also material thing, but more skinned woman. It’s not
Prompted by conversations at the Community Advisory Committee and current events means clear and careful of like a spiritual thing.” the same, there’s different
related to public parks, we were looking to find out more about what would make a park
signage to and work with Dakota people to create places for
communication with levels.”
at Upper Harbor Terminal a Safe, Inviting and Relevant resource for Black Northsideers. other people.”
the table to envision and drive what is next.
“A place where you know “A place where white
expression into the park to support
Here are the themes and ideas we heard. your kids can be safe and people don’t have assumed
“We have been led to
believe that fear is at you don’t have to worry authority to police you.”
WE CAN USE DESIGN & AESTHETICS TO the forefront as Black about them.”
access, gathering, and harvesting, and support education, FOSTER BLACK CULTURE IN THE PARK people.”
THE FEELING CREATED THROUGH THE DESIGN OF THE PARK CAN GREATLY AFFECT
WE WANT TO SEE BLACK PEOPLE IN
artists and create a strong sense of
3. Appropriation and re-appropriation of this place
HOW THE PARK IS USED AND HOW PEOPLE FEEL WHEN IN IT. THIS IS A CHANCE
FOR BLACK CREATIVES TO SHAPE OUR LANDSCAPE. AND AT THE SAME TIME, LEADRSHIP ROLES
language, and Indigenous land management and cultural
WHO COMES TO THE PARK WILL ALSO SHAPE HOW IT FEELS.
WE RECOGNIZE THE IMPORTANCE OF DECISION MAKING POWER BEING IN
ownership and belonging.
“Why should we stop at “There’s an intention “The people who are there BLACK HANDS. THE RECOURCES OF THE PARK WOULD BE MORE ACCESSIBLE IF
Minnehaha-esque design that we set to make this are more important than THEY WERE FACILITATED BY BLACK PEOPLE.
– Local graffiti artists began using the domes
when perhaps we could go a space about healing the aesthetic for making it
further?” and peace. And that feel like a Black space.” “Not having traditionally “I live next to a park “As we think about
practices. also flows through the
way that we do design,
the way we design
the aesthetic, and the
“It would look nice, and
colorful like a nice green
tropical rain forest and
white lead orgs at the
forefront pushing
programs and what the
space should be.”
with 80% Black staff…
but all the leadership
is White. Having Black
people picking up trash
staffing the park one
of the things that I’m
saying is that we have to
develop a pipeline that
way that we bring this
forward and in the park
is just one piece of it.”
see lots of pretty black
woman and men having
pretty colors on them.”
while answering to
Whiteness doesn’t sound
“good” to me.”
will create the leaders in
those parks.”
f. Use the five Northside Storylines and other structures as canvases, redesigning the
b. This park should be a Black Space and all who come to the
defined by Juxtaposition Arts during area as an outdoor gallery. This DIY approach to
park should be aware that this is a place that celebrates and
the Public Art Master Planning Process placemaking turned Upper Harbor Terminal into
supports Black lives. There are many ways to reinforce the idea
as a guide to which stories should be
of Black space from envisioning a place where art, music, and
Full summary of the UHT listening session place known by artists.
conducted by JXTA is found in the appendix promoted. →
culture are nourished, to a safe and green refuge from other life 4. Settlement history of the Northside The
stresses, to an economically supportive park. Northside is defined by resilient people who came
c. Name the park something that is meaningful to both North together from different historical traumas. This
Minneapolis residents and Dakota people. Conduct a name revolutionary community, defined by our victories
exploration process that engages the Northside community as much as our struggles, shares this history. Now
members and Dakota people. we have a new generation who is creating a new
vision and reality.
One example that arose repeatedly was the different 5. Food sovereignty in Black, Native and POC
relationships distinct cultural groups had with water and communities - A movement of growers and chefs,
the river. While water is sacred in all cultures, expressing its gardeners and organizers, entrepreneurs and
“This park should have something centrality to life varies widely. For some community members, non-profits are working against a lack of access to
to represent each culture and the Mississippi River is a well-known and loved, others have
ethnic group” fresh and healthy foods. UHT has the potential to
had little opportunity or access to this or any similar water
amplify Northside food justice efforts.
―LAO FOCUS GROUP COMMUNITY MEMBER body. Building relationships and getting to know the array of
programmatic interests and support needed is essential;
the park must support tailored and varied methods.
30 31Vision
5. Actively Program and Staff the Park to connect residents, build ownership, and provide
supportive jobs and capacity building.
Because the UHT is an unknown space and disconnected physically from the
neighborhood, it is essential to intentionally create ownership and connections with
Northside residents.
a. Activate the park with appropriate and supportive
programming. Provide programming where people an enjoy
the park without significant capital and equipment and
provide options for public use. Create an atmosphere where
people are welcomed without spending money. When there
are opportunities to purchase food or materials at the park,
encourage Northside entrepreneurs to seek participation.
b. Use employment as a tool to activate and care for the
park, invest in the community, and teach skills related to the
river, ecological areas, green infrastructure, and recreation.
Encourage Northside and BIPOC community members to seek
employment with MPRB and other partners.
c. Provide supportive and intentional programming to support
activities that are typically enjoyed by White users, such as
watercraft recreation.. Encourage Northside and BIPOC
community members involvement and skill building.
Draft Design Concepts from May 2020
d. Emphasize positive park activation through programming
and employment and partnerships as a security mechanism,
rather than traditional policing. Community members often expressed diverging visions for the park,
from a green and nature based area, to a more active park with
recreational amenities, to a more urban character. The park can
still evolve into any of these directions and be a destination area it
becomes clear that substantial new improvements are desired.
“We need an investment in programming and connective work
that is as committed as the infrastructure development.”
―BLACK OUTDOOR AND ACTIVE LIVING ADVOCATE
32 33Vision
Program Model
The Program Model translates the activities and During engagement the team assessed how key categories of park users,
experiences desired for a public space into physical including children, teens, seniors, individual users, people in groups, and
A Program Model serves
organizations, might interact with the park. The resulting list of ten key
design and capital investments that support those three major functions:
experiences includes information on how the physical park features can be
experiences. The Program Model is the basis for
nj Guidance around experiences the tailored to support community needs and desires.
design work, while recreational programming is the
cadence of activities that occur in a park over time
residents want that should be delivered 1. Connect with the River: View, walk or sit by the water, touch water, The water access
through park design and programming. access with watercraft.
and follows park implementation. should not be
nj Assessment tool for evaluation of current 2. Hold Large Events: Festivals, performances, movies, neighborhood
The project team organized the desired activities socials. Having cultural and local events on the river can support a repeat of the
and any future design concepts.
and experiences for the park into categories that Northside organizations and people, introduce residents to the park, Camden boat
could begin to inform the physical spaces. These nj Guidance on shaping staffing, events, and add to the sense of Northside ownership.
activities, and temporary structures
launch and needs
activities ranged across wide spectrums and 3. Hold Small Gatherings and Events: Family gatherings, picnics, art
sometimes competed, from individual to group within the park once it is open. shows, classes, barbecues. to be supported
activities, to active and passive recreation. 4. Buy, Enjoy, Harvest Food: Grow food, take classes, cook outside, by staff in a
purchase food, attend a market. Food can be intertwined with public
central and
spaces in many ways, and the park can contribute toward food justice
and a more local system. active location.
5. Relax in Nature: Quiet places within natural landscapes to walk, sit,
view the river. The park should have continuous natural areas large
enough to allow visitors to escape the hustle and bustle of the city
6. Learning and Education: Outdoor or indoor classes and skill building,
educational signage, programs focused on food, ecology, and culture.
7. Visitor Support: Drink water, shelter from weather, find bathrooms, staff
support, places to sit, adequate parking.
8. Intergenerational Play: Playground, free play, pop up games, events for
all ages to enjoy.
9. Winter Activities: Ice skating, sledding, winter classes, sit around a fire,
indoor activities for enjoyment year round
10. Movement and Exercise: Support activity and sport areas, fitness
classes, places for active play, running and biking.
Top requests for the park space organized by the Program Model team
34 35Vision
Park Design Principles
Park design principles provide 1. Maximize site clean-up and removal of industrial 7. Embed art and expression into the park with
specific direction on park amenities, structures that take up significant space. dedicated budget to support artists and create a strong
design, or layout. Based on the public
sense of ownership and belonging by Northside
engagement process, the Vision 2. Focus on environmental healing: restore the land with
community members.
statements, the program model, and native and ecologically rich vegetation, manage
the story lines developed by JXTA, stormwater to protect the river, clean contaminated soil, 8.Acknowledge Dakota land and support Dakota and
the first set of park design principles use green and renewable materials, and mitigate climate Indigenous people in visible ways through interpretation,
provide more specific guidance on park
change. design, gardens, areas to gather and harvest, outdoor
space design and development:
learning areas, and visible incorporation of language,
3. Provide critical visitor support, such as restrooms,
and cultural practices.
drinking water, lights, seating, wayfinding signage,
shade, parking, and shelter. Because UHT is in a 9. Plan for evolution with community use: use mobile
somewhat isolated area, basic support is critical for any and flexible methods to provide amenities where possible
significant park use, especially if people use transit to and plan on future adjustments to spaces.
access the site.
a. Allow for a variety of indoor park space options,
4. Support commonly requested experiences with picnic including the potential for public park space on the
areas, accessible water access, flexible lawn area, play, ground floor of an adjacent development parcel.
and seating, walking, and gardens. Provide basic indoor space with mobile and movable
5. Support programming and activation including buildings as both the need and the options for future
flexible accessible (paved) areas, flexible lawn space, building space become clear.
“The park should
help shape the future.
multipurpose indoor space, and infrastructure such as b. Allow for future removal of the river wall and
storage, lights, outlets, and water. With programming, restoration of an ecological edge. Do not place
MPRB and other organizations can help bridge awareness significant permanent structures, such as a building, This is an important
and transportation gaps as well as invest into the people that would deter future options to change the wall. connection to the river
and connect them to the park through paid work.
c. Utilize mobile furnishings, such as a mobile stage and an opportunity to
6. Support robust staffing and capacity building with to test out performance events. Allow for the
green infrastructure working areas, gardens and
support our claim to
addition of a permanent outdoor performance area,
stormwater management designed for staff training, particularly if the adjacent venue should change. this space.”
indoor and outdoor staff storage, and staff office ―NORTHSIDE RESIDENT
touchdown areas.
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