HomeMy WebLinkAbout2009-01-12 CPC Packet
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CITY OF STILLWATER
PLANNING COMMISSION
NOTICE OF MEETING
MONDAY, JANUARY 12, 2009
The City of Stillwater Planning Commission will meet on Monday, January 12, 2009, at 7 p.m. in the
Council Chambers at Stillwater City Hall, 216 North Fourth Street. City of Stillwater Planning
Commission regular meetings are held at 7 p.m on the second Monday of each month. All City
Planning Commission meetings are open to the public.
AGENDA
1. CALL TO ORDER
2. APPROVAL OF DECEMBER .8, 2008 MINUTES
3. PUBLIC HEARINGS. Public Hearings are held during the Planning Commission's regular
meetings. The Chairperson opens the hearing and will ask City Staff to provide background on the
proposed item. After the staff presentation, the Chairperson will then ask for comments from the
applicant on the proposed item. The Chairperson will then ask if there is anyone present who
wishes to speak for or against the proposed item. The Chairperson may require a time limit on the
number of minutes each member of the public may speak, normally five minutes. Members of the
public who wish to speak will be requested to step forward to the podium and must state their
name and address. At the conclusion of all public testimony the Commission will close the public
hearing and will deliberate and take action on the proposed item.
3.01 Case No. 08-51. A variance to the river and bluff setback for Bergstein and Shoddy Mill
located at 805 South Main Street in the IB, Heavy Industrial District. City of Stillwater,
applicant.
3.02 Case No. 09-01. A special use permit request for an accessory dwelling unit located at
1004 6th Street South in the RB, Two Family Residential District. Ryan and Vanessa Mitchell,
applicant.
3.03 Case No. 09-02. Determination of a "substantially similar use" and if found, then a special
use permit request for an arts based preschool located at 2000 Industrial Blvd in the BP- I,
Business Park Industrial District. Tim Lvell, applicant.
4. OTHER BUSINESS
CITY HAll: 216 NORTH FOURTH STREET . STillWATER, MINNESOTA 55082
PHONE: 651-430-8800 . WEBSITE: www.cistillwater.mnus
City of Stillwater
Planning Commission
December 8,2008
Present: Chair Dave Middleton, Suzanne Block, Dan Kalmon, Michael Kocon, Taylor Luke, John
Malsam, Wally Milbrandt and Charles Wolden
Staff present: Community Development Director Turnblad and Planner Pogge
Absent: Mike Dahlquist
Chair Middleton called the meeting to order at 7 p.m. and welcomed Mr. Kocon and Mr. Malsam
to the Commission.
Approval of minutes: Mr. Milbrandt, seconded by Mr. Luke, moved approval of the minutes of
Nov. 10, 2008, and Nov. 19, 2008. Motion passed 6-0, with Mr. Kocon and Mr. Malsam
abstaining.
PUBLIC HEARINGS
Case No. 08-49 A Zoning Text Amendment to allow a senior care facility by special use in the
Lakeshore Residential District and a Comprehensive Plan Amendment to change future land
use from single family, small lot to single family, large lot for the property located at 12525 75th
St. N. in the AP, Agricultural Preservation District. Stillwater Select Properties, Greg Johnson,
applicant.
Mr. Johnson was present. Community Development Director Turnblad reviewed the history of
the project. Mr. Turnblad noted the decision to rezone the property to Lakeshore Residential
resulted in the two requests the Commission is considering at this time - a text amendment to
allow a senior care facility in the LR District by special use permit, as well as a Comprehensive
Plan amendment changing the land use designation from its current designation of single family,
small lot to single family, large lot.
Mr. Turnblad reviewed the two requested actions. Mr. Milbrandt noted that previously there was
discussion about the Shoreland Overlay District and lots that are located partially within that
District. Mr. Turnblad said allowing a senor facility in this particular residential district
designation is consistent with the goals of the Comprehensive Plan and noted that almost every
single-family residential district in the City allows this type of use by special use permit.
Regarding the Comprehensive Plan amendment, Mr. Turnblad explained that the amendment is
necessary to rezone this property to Lakeshore Residential as by state law a rezoning must be
consistent with a City's Comprehensive Plan and Lakeshore Residential is large lot, which is not
consistent with the current Comprehensive Plan. The difficulty, he explained, is that while the
amendment is required, the Metropolitan Council will not allow the City to make application for
the amendment due to the Met Council's expectation that by the end of this year, all cities will
have their 2030 Comprehensive Plans adopted. Mr. Turnblad explained that to deal with the
situation with the Met Council, staff recommendation would be to adopt an interim rezoning to
RB, two-family residential, which would not require a Comprehensive Plan amendment. He said
staff has spoken extensively with City Attorney Magnuson and the City's Metropolitan Council
representative regarding the situation. Mr. Turnblad explained the ordinance would be written so
the rezoning would be an interim rezoning, RB until the 2030 Comprehensive Plan is adopted -
the new Comprehensive Plan does guide the property for large lot, residential. He stated the
ordinance would also be worded so that the rezoning does not take place until the building
permit for this project is issued. Mr. Milbrandt asked if there is any possibility that in the interim
before the new Comprehensive Plan is adopted next summer the adjacent property owner(s)
could make application for a rezoning to something other than large lot, residential. Mr. Turnblad
said a property owner could make application but the City has a lot of flexibility and if it doesn't
like a project, it could utilize a de facto moratorium on development because there is no
Comprehensive Plan in place that is recognized by Met Council.
Mr. Johnson stated plans have not changed much since his last presentation; the interior has
changed somewhat to make units larger for future residents. Mr. Milbrandt asked about an
anticipated start for the project. Mr. Johnson said they are actively working with their lender at
this time and would anticipate breaking ground sometime in the spring of 2009, with about a 12-
14 month build time. Mr. Johnson stated it would be a detriment to them if they had to wait until
final adoption of the new Comprehensive Plan and asked that the Commission consider the
action as recommended by staff.
Mr. Middleton opened the public hearing. No comments were received, and the hearing was
closed. There was a question regarding the opportunity for further review of site plans,
elevations, etc. Mr. Turnblad explained the process for plan approvals. It was noted that the
Commission made comments regarding design during earlier presentations and the applicant
satisfied the Commission's comments/concerns. Mr. Malsam moved to approve the Zoning Text
Amendment and Comprehensive Plan amendment as recommended and conditioned. Mr.
Milbrandt seconded the motion; motion passed 8-0.
Case No. 08-50 A special use permit request for 8 apartment units and a variance to the parking
regulations at 124 S. Main St. in the CBD, Central Business District. Mark Balay, applicant.
Planner P09ge reviewed the request and staff findings. It was noted that a special use permit
and variance had previously been granted for 5 apartment units. Mr. Pogge stated approval is
recommended with four conditions. Mr. Wolden asked whether all changes were internal rather
than external changes. Mr. Pogge stated that are no fa<;ade changes proposed, other than
reopening the window openings, which was previously reviewed and approved by the Heritage
Preservation Commission. Mr. Middleton asked about the requirement of the provision for a
certain number of covered parking spaces. Mr. Pogge responded that is a requirement, but a
requirement that cannot be met in projects that involve the reuse of existing buildings in the
downtown, thus the recommended condition of purchasing 15 monthly parking permits for
tenants.
Mr. Balay was present and briefly reviewed plans for the 8 apartment units, explaining the
change from 5 to 8 units is a matter of economics to make the project a viable one. Mr.
Middleton opened the public hearing. No comments were received, and the hearing was closed.
Mr. Wolden moved to approve the special use permit and variance as conditioned. Mr. Kalmon
seconded the motion; motion passed unanimously.
OTHER BUSINESS
Case No. 08-48 A resubdivision of one lot into two lots at 915 W. Abbott St. in the RB, Two
Family Residential District. Ray Loida Jr., applicant.
Mr. Middleton noted he would be removing himself from this discussion due to a personal
interest in the matter and that Mr. Wolden would assume the chair for this case. Mr. Pogge
reviewed the request and staff findings. Mr. Pogge noted that in the renovation of Washington
Square it was determined that the applicant's garage encroaches into the park boundaries, and
the City Council recently granted a license to allow the encroachment to continue and be
2
maintained until some time in the future when the building is destroyed by fire or has to be
rebuilt, at which time the building and any remnants would have to be removed from City
property. He concluded that staff recommends approval with four conditions.
Ms. Block expressed a concern about the garage and the encroachment on City property,
questioning how a new garage could be built on the lot without any variances. Mr. Pogge
agreed that it would be very difficult to construct a new, two-car garage on the lot, but noted that
in the City's historic neighborhoods, it is unusual to have two-car, attached garages and a likely
scenario for reconstruction would be a detached garage in the rear of the lot. Ms. Block pointed
out that many requests for variances are the result of a desire for two-car garages and
suggested that the Commission's function shouldn't be to approve a project that in the future will
require a variance; she wondered whether the Commission could attach some language
indicating there won't be any variances issued to construct a new, two-car garage. Mr. Pogge
pointed out that the Commission cannot bind future Commissions and Councils to a previous
action; he stated the Commission needs to either approve or disapprove of this request on its
merits. Mr. Milbrandt pointed out that there is space on a lot of the proposed dimensions of this
resubdivision to construct a two-car garage. Mr. Wolden pointed out that it is the new lot that is
the subject of the Commission's action.
Mr. Wolden welcomed public comment. No comments were received. Mr. Milbrandt moved
approval as conditioned by staff. Mr. Kocon seconded the motion; motion passed 7-0-1, with Mr.
Middleton abstaining.
Mr. Middleton thanked Taylor Luke and Wally Milbrandt for their efforts on the Commission.
Meeting was adjourned at 7:45 p.m. on a motion by Ms. Block.
Respectfully submitted,
Sharon Baker
Recording Secretary
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Planning Report
DATE:
January 8, 2009
CASE NO.: 08-51
APPLICANT:
City of Stillwater
REQUEST:
1) River setback variances
2) Bluff setback variances
ZONING:
Base District: IE, Heavy Industrial
Overlay District: St. Croix River District
Overlay District: Flood Fringe
LOCATION:
805 Sou th Main Street
PLANNING COMMISSION HEARING: January 8, 2009
PREPARED BY: Bill Turnblad, Community Development Directorp.T_
BACKGROUND
On June 7, 2005 the City Council agreed to provide a site for relocation of two historic
buildings that are currently in Oak Park Heights. The buildings are located where a
ramp to the new St. Croix River Bridge will eventually be constructed. One of the
buildings, a single story field stone structure, is the former shoddy mill where the
Bergstein Family mattress business had rags turned into shoddy, which was used for
stuffing mattresses. The second building is a two story wood-framed warehouse,
which was used for storage and mattress production.
After agreeing to provide a new location for the historic buildings, the City had an
assessment report completed, which identified the Aiple Towing Company's former
terminal building as the relocation site for the two structures. The report was
completed by the 106 Group and SRF Consulting in January of 2006. That report is
attached.
October 31, 2006 the City Council adopted Resolution 2006-239 approving the
Memorandum of Understanding for the new river crossing project, induding a
confirmation of the commitment to provide the relocation site for the Bergstein
Bergstein Variances
January 8, 2009
Page 2 of 4
buildings. The actual move and its costs will be the responsibility of the Minnesota Department
of Transportation (MnDOT).
Relocating the buildings is planned to occur just prior to construction of the new bridge. The
target date for letting the bridge contract is July 2013. This date was set after the Minnesota
legislature recently authorized funds for Minnesota's portion of the project costs. However, in
an attempt to assemble all the necessary permits for the project, MnDOT is requesting the City
to grant the variances for the relocation site sooner rather than later.
SPECIFIC REQUEST
The proposed site for the two buildings is located within the required 100 foot setback area of
the St. Croix River as well as within the 40 foot "bluff" setback area. Therefore, the following
specific variances are being requested:
A) Warehouse
1) + / - 55 foot variance from the required 100 foot setback from the St. Croix River in
order to allow the warehouse building to be located within + / - 45 feet of the river.
2) + / - 16 foot variance from the required 40 foot setback from the top of the bluffline
nearest the St. Croix River in order to allow the warehouse building to be located
within +1- 24 feet of the bluffline.
3) + / - 29 foot variance from the required 40 foot setback from the toe of the bluff west
of the warehouse in order to allow the warehouse building to be located within + /_
11 feet of the toe of the bluff.
B) Shoddy mill
1) + / - 35 foot variance from the required 100 foot setback from the St. Croix River in
order to allow the shoddy mill building to be located within + / - 65 feet of the river.
2) + / -14 foot variance from the required 40 foot setback from the toe of the bluff west
of the shoddy mill building in order to allow the warehouse to be located within + / _
26 feet of the toe of the bluff.
COMMENTS ON REQUEST
The purpose of a variance is to allow variation from the strict application of the terms of the
zoning ordinance where, by reason of the exceptional narrowness, shallowness or unusual
shape of a specific piece of property or by reason of exceptional size, shape, topographic
conditions or the extraordinary condition of the property; the literal enforcement of the
requirements of the zoning ordinance would involve practical difficulties or would cause undue
hardship.
Findings required. A variance may be granted only when all of the following conditions are
found:
(1) A hardship peculiar to the property, not created by any act of the owner, exists.
Personal, family or financial difficulties, loss of prospective profits and neighboring
violations are not hardships justifying a variance.
Bergstein Variances
January 8, 2009
Page 3 of 4
a. In this instance, "exceptional size, shape, topographic conditions" peculiar to
the property create the practical difficulty. The terracing of bluffs, location of
the trails to be constructed by MnDOT and narrowness of the site all combine
to eliminate all potential building locations.
(2) A variance is necessary for the preservation and enjoyment of substantial property
rights; and, if granted, would not constitute a special privilege not enjoyed by
neighbors.
a. Of concern here is that granting the variances should not create a precedent
that would be used by other property owners to ask for the same type of
variance. If there are other owners with the same property characteristics,
they should be treated the same, otherwise a "special privilege" claim could
be made. In this application, the use of the buildings will be for passive
public recreational activities. Specifically, there will be signs or plaques for
explanation of the historic significance of the buildings, public restrooms and
likely an opportunity for users of the future trail to rest. This passive public
re-use of the buildings together with the specific set of topographic features
that characterize the site combine to create a very unique situation. Chances
of other property owners cIainung "special privilege" are quite slim because
the property and situation are so unique.
(3) The authorizing of the variance will not be of substantial detriment to adjacent
property and will not materially impair the purpose and intent of the zoning
ordinance or the public interest nor adversely affect the comprehensive plan.
a. The residential properties to the west are situated high above the subject
property on top of the limestone bluffs. In addition, the planned passive
recreational use of the site should be compatible with the residential property
to the west.
11. In terms of the comprehensive plan, both the 2020 Plan and the 2030 Plan
show the site guided for park and open space purposes. The proposed uses
of the relocated sh'uctures are recreational.
c. The Minnesota Department of Natural Resources and the National Park
Service both have interest in this project. And they have been involved in the
discussions related to the proposal for a number of years now. None the less,
the specific plans and variance requests will be sent to them for comments. If
they have concerns that impact the building locations, the project will need to
come back to the Planning Commission. However, since both groups have
been involved in this project, staff does not expect this to happen.
A note on the bluff setback standards: Though generally speaking no bluffs are recognizable
within 40 feet of the proposed building relocation site, any 12% slope in the St. Croix River
Overlay District is technically considered to be a "bluff". Consequently, a setback of 40 feet is
required from the top and from the toe of every 12 % slope located between the former railroad
h'ack and the river. There are two such "bluffs" near the subject site. They can both be seen in
the attached exhibits.
Bergstein Varianccs
January 8, 2009
Page 4 of 4
RECOMMENDATION
Staff finds the variance criteria to be satisfied and therefore recommends approval of the
variances with the condition that any concerns expressed by the DNR or the National Park
Service that impact the location of the buildings will require reconsideration by the Planning
Commission.
ALTERNATIVES
The Planning Conunission has several alternatives.
A. Approve If the proposal is found acceptable to the Planning Commission, it could
approve the variances, with the condition that any concerns expressed by the DNR or
the National Park Service that impact the location of the buildings will require
reconsideration by the Planning Commission.
B. Deny If the Planning Commission finds that the variances are not advisable, it
could deny them. With a denial, the basis of the action should be given.
C. Table If the Planning Commission feels that there is a likelihood that the DNR
or National Park Service may have serious concerns with the proposal, it could table the
case until the City has received comments from them.
cc: DNR Regional Hydrologist
National Park Service
attachments: Location Map
Site Map
Site Assessment Report
~ water
Community Development Deparlmenl ~
Bergstein Relocation Site
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Case no. 08-51
D Municipal Boundary
City of
Community Development Departmenl
Bergstein Relocation Site
Setback Variances
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Case no. 08-51
BERGSTEIN PROPERTY RELOCATION MITIGATION PROJECT
PROPOSED SITE ASSESSMENT
SUBMITTED BY THE 106 GROUP LTD. AND SRF CONSULTING GROUP
TO THE CITY OF STILLWATER
JANUARY 2006
INTRODUCTION
During studies completed for the proposed St. Croix River Crossing, the Bergstein
property (WA-OHC-OOl and WA-OHC-072), which includes a two-story warehouse and
stone shoddy mill, was determined to be eligible for listing in the National Register of
Historic Places (NRHP). The currently proposed crossing would require the removal of
the Bergstein property. The Environmental Impact Statement (EIS) for the S1. Croix
River Crossing states that mitigation of effects to the Bergstein shoddy mill and
warehouse may include moving the buildings.
The City of Stillwater has identified a proposed new site within a city-owned parcel
known as the Aiple Property, at the location of the current Terra Terminal building. As a
resuit of this location choice - adjacent to the St. Croix River and within a floodplain -
federal, state and city agencies have an interest in the placement of the historic buildings
and/or have regulatory oversight. These agencies include:
" The National Park Service (NPS), which has oversight within the S1. Croix Scenic
Riverway planning area, where the new location for the buildings is proposed;
" The Minnesota Department of Natural Resources (DNR), which reviews projects
within the floodplain;
G The City of Stillwater, which regulates construction within the Floodplain and
Bluffland/Shoreland Overlay Districts, and is responsible for the implementation
of the Aiple Property Master Plan; and
III The Minnesota State Historic Preservation Office (SHPO) and the Minnesota
Department of Transportation (Mn/DOT), which have Section 106 responsibilities
for the project with regard to its historical considerations.
The purpose of this assessment is to document compliance with the above-noted federal,
state, and city requirements for the proposed site, and to determine to what extent the
proposed site meets the recommended guidelines for placement of the historic structures.
Site plan and cross-section drawings illustrating setting and elevation were prepared to
illustrate the placement of the buildings at the proposed site. In addition, a brief outline
of how the historic buildings would fit into the existing and proposed Aiple Property
Master Plan, with potential reuses, is provided.
Bergstein Property Relocation Mitigation Project
Proposed Site Assessment
Page 2
STATEMENT OF SIGNIFICANCE
The Bergstein shoddy mill and warehouse have been determined eligible for listing in the
NRHP under Criterion A in the area of social history - association with the events that
have made a significant contribution to the broad patterns of our history. The following
excerpt from the Minnesota Architecture-History Inventory Form describes the
significance of the property:
The story of the Moritz Bergstein family is both characteristic and
unusual. Like many Jewish immigrants, he engaged in commercial
endeavors involving used goods and recycled materials. But, in contrast
with typical urban Jewish immigrant activities, the Bergsteins living in a
small town distant from other Jews and Jewish institutions, engaged (for a
time) in light manufacturing, owned property soon after coming to
America, and hired non-Jewish workers. Furthermore, Moritz and Bertha
Bergstein emigrated in 1880 when thousands of Jews fled Eastern Europe,
but it appears they were both in Germany and Bohemia, respectively, as
were their parents.
In the 19th and early 20th century, Jewish settlers were r~re in the St. Croix
valley, and properties associated with their way of life are accordingly
scarce. Six buildings on two sites are directly associated with the
Bergstein's home and shoddy mill and junkyard and the family's
adaptations to American life. (Minnesota Architecture-History Inventory
Form W A-OHC-On).
Although the residence and other domestic structures associated with the property are no
longer extant, the shoddy mill and warehouse continue to exemplify the economic
pursuits of the Bergstein family and remain a rare aspect of local Minnesota culture.
While moving historic properties is discouraged because the relocation alters the
relationship between the property and its surroundings, in this case the removal of the
Bergstein property is considered to be a means of mitigation in preference to the
demolition of the buildings for the construction of the St. Croix Crossing project.
PROPERTY DESCRIPTION
Setting
The Bergstein property currently stands on the edge of the bluffs west of the St. Croix
River Valley on the east side of Stagecoach Trail (formerly Main Street) in the City of
Oak Park Heights, immediately south of Stillwater, Minnesota. The property was once
set in a semi-rural location, on the outskirts of Stillwater, although by the 1920s, the
surrounding area was built up into a sparsely populated residential neighborhood. Due to
the demolition of those houses in recent years, the property is once again set within a
fairly isolated area. Stands of young trees and scrub currently obstruct the view of the
river valley, and it is unknown what the nature of the vegetation would have been during
the property's period of significance.
Bergstein Property Relocation Mitigation Project
Proposed Site Assessment
Page 3
The extant Bergstein property includes a stone shoddy mill and wood-framed warehouse.
Historically, these two work structures have always been together; they were separated
from the Bergstein residence and other domestic structures by a railroad and a wood
viaduct (not extant) to the west (Figure 1). The warehouse is rectangular, running east to
west, with the mill 25 to 30 feet due south of its center. The warehouse's gable end faces
the road (west) and the mill's primary fayade faces onto the south side of the warehouse
(Figures 2 and 3). Although most of the property where the buildings are located is level,
the terrain drops precipitously to the river valley on the east, exposing the northeast
comer of the warehouse foundation.
Buildings
The warehouse is constructed of timber framing, designed to support heavy loads and
was used in the Bergstein mattress-making operation (Figure 4). The second floor space
provided a room where workers stuffed mattresses. The stuffing was lifted to the second
story through a trap door by a large wooden pulley, moved along a catwalk, and then
dumped into the stuffing room through a canvas chute.
The shoddy mill is a simple, one-story, rectangular-plan building constructed of rubble
stone with liberal amounts of mortar (Figure 5). Access is provided by a replacement
wood door located on the east end of the north (front) fayade. A brick, segmental arch
sets off the window opening on the west fayade. The stone mill housed Bergstein's rag-
processing operation, where rags would be turned to shoddy using a rag-tearing machine,
known as a devil. A wood-fueled engine was located within the structure and had a 25-
foot chimney at the rear.
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FIGURE 1. HISTORIC ARRANGEMENT OF BERGSTEIN PROPERTY, 1924
Bergstein Property Relocation Mitigation Project
Proposed Site Assessment
Page 4
FIGURE 2. BERGSTEIN WAREHOUSE AND SHODDY MILL, FACING NORTHEAST
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FIGURE 3. STAGECOACH ROAD AND BERGSTEIN PROPERTY, FACING NORTH
Bergstein Property Relocation Mitigation Project
Proposed Site Assessment
Page 5
FIGURE 4. BERGSTEIN W AREHODSE, FACING NORTHEAST
FIGURE 5. BERGSTEIN SHODDY MILL, FACING EAST
Bergstein Property Relocation Mitigation Project
Proposed Site Assessment
Page 6
REGULATORY FRAMEWORK
The proposed relocation site is subject to various regulatory guidelines or requirements
and would be subject to review and approval by the City of Stillwater, the DNR, the NPS,
MnlDOT and SHPO. Brief outlines of the applicable requirements are addressed below.
Floodplain and BluJjland/Shoreland Overlay Districts Regulations
Construction within the Aiple Property is subject to City of Stillwater review under its
Floodplain and Bluffland/Shoreland Overlay Districts ordinances. Under these
ordinances, buildings placed within this zone are required to have a building's first floor
elevations at a minimum of one foot above the 100 Year Floodplain Elevation. In the
case of the relocation site, the 1 00 Year Floodplain Elevation is approximately 692 feet;
the building's first floor would need to be at 693 feet. In addition, any required fill must
extend 15 feet from the structures at or above 693 feet. The required setback is at least
100 feet from the Ordinary High Water Mark (OHWM) (which is 675 feet) and 40 feet
from any bluffline (slopes of 12 percent or steeper). The building height maximum is 35
feet. Exterior surface colors must be "earth or summer vegetation tones" and vegetative
screening of structures is required from the vantage of the river. Placement of fill is
allowed with a permit. Variances would be necessary for requirements that are not met.
Conditional use permits would be necessary for proposed uses of the structures other than
those specified as "permitted uses." Variances and conditional use permits require
approval processes by the City and DNR.
Sto Croix National Scenic Riverway
The St. Croix National Scenic Riverway, administered by the National Park Service
(NPS), has jurisdiction for properties within its boundaries. Changes to properties within
this area would need to be evaluated under the National Scenic Waterway Act (7 A
Evaluation). A 7 A Evaluation was completed with regard to the St. Croix Crossing
project and specific mitigation measures for the adverse effects resulting from the
crossing were identified. Among these mitigative measures are the removal of the Terra
Terminal building and restoration of the shoreline for the purpose of enhancing the scenic
value of that location. The Terra Terminal building measures approximately 350 by 40
feet, and is visible from the river up to 23,000 feet to the south and 13,000 feet to the
north.
Future development on the Terra Terminal site should not negate the benefits gleaned
from its rei110val. Effective screening from river vantage points, natural shoreline
restoration, and adherence to the City of Stillwater's Floodplain and Bluffland/Shoreland
Overlay Districts Regulations would help to make any development on the site less
inconspicuous when viewed from the river.
Other concerns expressed in a conversation with NPS staff included the consideration of
the Aiple Property as a transitional zone for the developed downtown area of Stillwater to
a more natural shoreline farther south. Development and siting plans should maintain
and enhance that transition. The NPS urges the public use of the buildings within a park
setting; use of the buildings as a restaurant or other private facility are discouraged.
Bergstein Property Relocation Mitigation Project
Proposed Site Assessment
Page 7
Historical Considerations
With regard to the placement of the historic buildings, the EIS recommends that the new
location must be comparable to their historic location and compatible with the property's
historical significance in terms of:
a Orientation,
.. Setting, and
.. General environment.
Furthermore, if the new location has other in-place historic buildings that are located
nearby, particular attention will be needed to guard against creating a false sense of
history, while still creating a "natural" setting.
PROPOSED NEW SITE
A new site for the Bergstein warehouse and shoddy mill has been proposed within a
parcel owned by the City of Stillwater known as the Aiple Property. The Aiple Property
is being developed into a city park, with a trail system and active programming facilities.
The proposed site is approximately one mile north of the existing Bergstein site within a
thin strip of deciduous flood-plain forest running parallel to, and between Highway 95
and the St. Croix River. Historically, several mills and plants lined the shoreline. The
specified new site within the Aiple Property is currently occupied by an abandoned
fertilizer building, known as the Terra Terminal building, and is accessible by a gravel
road off Highway 95.
The proposed site was within the area of potential effect for the St. Croix River Crossing
project for both archaeological and architecturaVhistorical resources, and therefore has
been evaluated for hi~toric significance. Archaeological surveys completed in May 2005
by Two Pines Resource Group identified the Terra Terminal building area has having low
potential for intact precontact or post contact archaeological resources. The proposed site
is located within the Stillwater Cultural Landscape District, an NRHP-eligible historic
district. The Terra Terminal building, although never individually inventoried, is
presumed to be a non-contributing property within this district. An assessment of the
effects to that district resulting from the relocation of the Bergstein property should be
completed to comply with Section 106 of the National Historic Preservation Act of 1966.
During the master planning process for the Aiple Property, completed in 1998, several
alternatives for the property were conceived. Within the area of the proposed location of
the Bergstein buildings, plans indicate the construction of a 10-foot paved multi-use trail
east of the existing railroad bed, a river edge promenade and overlook, visitor boat slips,
and the Cayuga barge working river exhibit. The Terra Terminal building would be
removed under the preferred plan. The current proposal for the Bergstein property would
result in the demolition of the Terra Terminal building and the placement of the
warehouse and shoddy mill (Figures 6 and 7).
Bergstein Property Relocation Mitigation Project
Proposed Site Assessment
Page 8
FIGURE 6. PROPOSED LOCATION WITIDN MASTER PLAN DESIGN
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Bergstein Property Relocation Mitigation Project
Proposed Site Assessment
Page 9
EVALUATION OF PROPOSED SITE
The relocation of the Bergstein shoddy mill and warehouse to the Aiple Property presents
several challenging requirements to accommodate both the historical considerations of
the two buildings and the zoning and scenic considerations of the riverside site. Graphic
illustrations of the concept plan and cross sections for the relocated buildings on the
proposed site are found in the Attachments.
Floodplain and BlujjlandlShoreland Zoning Overlays
The proposed site and necessary building configuration would not meet the Floodplain
and Bluffland/Shoreland Zoning ordinances, and would therefore require a City variance
and DNR approval. The Terra Terminal site is entirely within the 100-foot setback of the
OHWM; no buildable sites within the immediate vicinity of the Terra Terminal site could
accommodate the placement of the shoddy mill and warehouse buildings outside of the
setback. As conceived in the concept plan, the warehouse would be placed about 40 feet,
and the shoddy mill about 60 feet from the OHWM. The Terra Terminal site is partially
within the 40-foot bluffline setback; no buildable site within the vicinity of the Terra
Terminal site could accommodate the placement of the shoddy mill and warehouse
buildings outside of the bluffline setback.
Elevation of the buildings would need to be raised to 693 feet (one foot above I 00 Year
Floodplain Elevation) in order to comply with the zoning regulations. This could be
accomplished by placing the buildings on foundations and adding fill to the area. The fill
would be slightly sloped to the east for water run-off and would be 2 to 3 feet deep and
should extend 15 feet from the structures at or above the 693-foot elevation. A permit
from the City would be necessary for the placement of the fill. Not only is raising the
elevation of the first floor above the floodplain important for meeting the zoning
requirements, it would also be important to keep the buildings out of danger from
flooding, thereby preserving and protecting their historic materials. To place the
buildings within a site that would create an undo threat to their material integrity would
be considered unacceptable.
St. Croix National Scenic Riverway
The placement of the shoddy mill and warehouse buildings on the site would require the
demolition of the Terra Terminal building, thereby meeting this mitigation requirement
for the St. Croix River Crossing project. The development of the site should not,
however, negate the beneficial effects of the Terra Terminal building's removal.
Although the plan would not be able to meet the shoreline and bluffline setback
requirements of the Floodplain and Bluffland/Shoreland Zoning Overlays, the shoddy
mill and warehouse would be a significantly smaller presence on the site than that of the
existing Terra Terminal building. Natural and existing vegetation will offer mitigative
screening between the shore and the buildings on the east and north side and would
contribute to making the buildings as inconspicuous as possible. Natural shoreline
restoration also would serve to mitigate what potential adverse effects the placement of
the buildings may have to the scenic qualities of the waterway. Care should be taken to
Bergstein Property Relocation Mitigation Project
Proposed Site Assessment
Page 10
limit the vegetation to areas outside the mill and warehouse compound, to retain the sense
of a working facility. Most vegetation within the historic building compound should be
minimized and avoid decorative and domestic planting schemes.
Historical Considerations
Orientation
The shoddy mill and warehouse would be situated on the parcel to retain an orientation
and spatial relationship comparable or identical to that of its original location. The
buildings would be placed 25 to 30 feet from each other and reconstructed in an
arrangement that would simulate the historic configuration. The buildings would also be
oriented to recreate the approximate original cardinal directions.
Moreover, the presence of a railroad bed to the west of the new site spatially resembles
the historic relationship of the Bergstein property to the railroad. Since the presence of
the railroad bed emulates the historical setting of the property, it would not be considered
the creation of a false sense of history, as would the presence of other historical buildings
not associated with the historical setting of the Bergstein property.
Although the site would require the buildings to be placed on a foundation and raised to a
level of 693 feet (one foot above the 100 Year Floodplain Elevation), the addition of fill
into the area would recreate a mostly level setting (the grade would be slightly sloped to
the east for water run-off) that would simulate the historical vertical orientation of the
Bergstein property. The elevation of the buildings at this level would also help to protect
the historic materials from most flood events.
Setting
The proposed new location is on the St. Croix River floodplain, just off the heavily
traveled Highway 95 corridor. In its new location, the mill and warehouse would stand
adjacent to the river, creating a visual association not present at its historical site.
Screening from the river would not only help to minimize the visual presence of the
nearby river, it would also help to diminish the effects of the buildings from the vantage
point of the river, a national scenic waterway.
The original setting of the propelty included its placement on four 50-foot-wide lots.
Previous relocation feasibility documentation completed by Claybaugh Preservation
Architecture Inc. in 2005 suggested that a parcel with dimensions of ISO-feet by ISO-feet
would be adequate for the new building site. The proposed site does not meet this
recommendation in terms of site depth (east-west), although the parcel would be of
sufficient width (north-south). Other buildings or landscape features constructed within
this zone, such as driveways or structures that emulate the non-extant structures once
associated with the mill and warehouse, should be related to the historical setting of the
Bergstein property.
The historical setting on the bluff above the St. Croix River Valley does not appear to be
significant in the property's setting or to its industrial function. Its adjacency to the
Bergstein Property Relocation Mitigation Project
Proposed Si te /\ssessment
Page II
railroad, and the semi-rural location, outside the City of Stillwater, are of greater
relevance. The new site should not significantly alter the setting of the buildings
themselves. The proposed new location saw several industry-related buildings come and
go over the last century and a half; relocated, the shoddy mill and warehouse would be
compatible with the general history of this environment.
General Environment
The general environment of the Bergstein property would be changed from a location on
the edge of a low-density residential community to a city park. The park setting,
however, is not an entirely bucolic, natural setting, but is instead one comprised of
sawmill ruins, railroad corridors, and other features indicating the presence of historical
industry. This type of environment would be complementary to the industrial heritage of
the mill and warehouse, and therefore would be a compatible environment. Care should
be taken in the placement of future park facilities, such as playgrounds, picnic shelters,
marinas or other incompatible facilities; they should not be placed within the vicinity of
the relocated historic buildings.
RE-USE AND INTERPRETIVE POTENTIAL WITHIN A PARK SETTING
The master plan for the Aiple Property includes the development of an events area,
walking and biking thoroughfares, picnic areas and interpretive markers. The shoddy
mill and warehouse would be on display in a public context, and the potential for its
adaptive re-use and interpretation are tremendous. The City of Stillwater has expressed
interest in adapting the buildings as trail head and/or interpretive center facilities or as a
hostel. A Site Plan Concept of the relocated buildings within the Aiple Property can be
found in the Attachments.
The following guidelines are recommended for the reuse and interpretation of the
Bergstein shoddy mill and warehouse:
a Implement re-use options that are compatible with the historic buildings and with
the public park setting.
" Follow the Secretary of the Interior's Standards and Guidelines for Rehabilitating
Historic Buildings (http://www.cr.nps.gov/hps/tps/standguide/index.htm) when
adapting to the new use of the historic buildings.
a Preserve the interior features and structural elements of the buildings that are
unique to, and illustrative of, their historical uses.
Gl Preserve and/or restore the exterior fayades of the buildings to their historic
appearance.
" Utilize these industrial buildings as a transition between the urbanized setting of
Stillwater on the north and the more natural areas along the St. Croix Scenic
Riverway to the south.
c Interpret the shoddy mill and warehouse within the context of its Jewish cultural
and economic origins to shed light on a unique cultural and industrial aspect of
Minnesota and Stillwater history.
'" Explicitly describe the Bergstein buildings' original site and physical context and
the circumstance of their relocation.
Bergstein Property Relocation Mitigation Project
Proposed Site Assessment
Page 12
'"
Interpret the industrial context of shoddy milling, as well as the other historical
archaeological industrial properties authentically associated with the Aiple
property, such as the Hersey & Bean Planing Mill, the Hersey & Bean Sawmill
and Slab Alley, which together comprise the proposed Stillwater South Main
Street Archaeological District that provides insights into Stillwater's nineteenth
century lumber industry and working-class life. Interpretation should make clear
what is authentic to the site (sawmill ruins, etc.) and what is not (shoddy mill and
warehouse) in order to avoid presenting a false sense of history.
Other visitor services or general river interpretation may take place within the
buildings.
Construction of other structures and landscape features, such as walkways,
driveways, and furnishings within the vicinity of the Bergstein buildings should
be kept to a minimum, should be based on historical precedent, when possible,
and should be expressed as distinguishably modem, yet compatible, forms.
I!I
..
SUMMARY CONCLUSIONS
Floodplain and BlufflandlShoreland Zoning Overlays
The proposed relocation site would result in the placement of the warehouse and shoddy
mill within 40 and 60 feet of the OHWM, respectively. The proposed relocation site
would not meet the Floodplain and BlufflandlShoreland Zoning Overlay ordinances
requirements because:
I!l the proposed site is within the 1 OO-foot setback from the OHWM; and
.. the proposed site is within the 40- foot setback from the bluffline.
The proposed relocation site would not exceed the 35-foot height limit, and would
therefore meet that requirement. The buildings would be raised to an elevation of one
foot above the 100 Year Floodplain Elevation, thereby meeting the requirement for
building elevation. Two to three feet of fill with 15 feet of the buildings would be
required. By raising the building to this elevation, historic materials would be protected
from 100-year flooding events.
The plan, as proposed, would need to seek a variance from the City of Stillwater Planning
Commission, and would require DNR approval. Furthermore, non-compliance with the
zoning requirements may not meet the goals of the NPS with regard to the mitigation
measures for the removal of the Terra Terminal building if the placement of the buildings
is perceived to negate the benefits of the removal of the Terra Terminal building. The
proposed plan would also require a permit for the fill material.
St. Croix National Scenic Riverway .
The proposed relocation plan would not meet the City of Stillwater's zoning regulations
for the property, and therefore may not meet the goals of the NPS, which are to restore
the natural and scenic qualities of the riverway. Vegetative screening and restoration of
the natural shoreline may sufficiently mitigate the effects of the proposed plan on the
scenic qualities of the St. Croix River.
Bergstein Property Relocation Mitigation Project
Proposed Sitc Assessment
Page 13
Historical Considerations
The proposed site meets many of the criteria necessary for the historical considerations of
the Bergstein property. The orientation, setting and general environment of the proposed
site would be altered from, although largely compatible with, the property's original site.
" The shoddy mill and warehouse could be configured on the proposed site in an
arrangement that would approximate the historical plan with respect to the
orientation of the buildings to each other, to the railroad bed, and to the
approximate cardinal directions.
" The shoddy mill and warehouse would be raised on foundations to an elevation of
one foot above 100 Year Floodplain Elevation (693 feet). Two to three feet offill
would raise the surrounding area to appear level and would simulate the existing
vertical orientation of the buildings. Historic building materials would be
protected from 100-year flooding events.
" The previous recommendation that a parcel measuring 150 feet by 150 feet would
be ideal for a relocation site could not be met at the proposed site. Vegetation at
the river's edge, however, may serve to mitigate for the lack of lot depth on the
proposed site and would simulate the current forested bluff setting on the east end
of the original lots.
.. The proposed site would be compatible with the historical significance of the
Bergstein property, and would continue to be located within a semi-rural setting
on a site historically associated with industry.
'" The park setting, which is comprised of sawmill ruins, railroad corridors and other
industrial remnants, is complementary to the industrial heritage represented in the
shoddy mill and warehouse. The placement of the buildings would not be
considered out of place within this environment.
Because the proposed site is within an NRHP-eligible historic district (the Stillwater
Cultural Landscape District), an assessment of the effects to that district resulting from
the relocation of the Bergstein property should be completed to comply with Section 106
of the National Historic Preservation Act of 1966.
Re-Use and Intnpretive Potential
The relocation of the shoddy mill and warehouse to the Aiple Property provides an
excellent opportunity to adapt the buildings for use as a visitor and/or interpretive center
within the park's public context. Rehabilitation of the shoddy mill, warehouse and
immediate surrounding landscape should be sensitive to the historical character of the
property and should utilize the Secretary of the Interior's Standards and Guidelines for
Rehabilitating Historic Buildings.
Interpretive materials should include discussion of the shoddy mill and warehouse within
the context of its Jewish cultural and economic heritage, and should specifically describe
the buildings' original site and physical context and the circumstance of their relocation.
Additional interpretation could tie-in with the industrial heritage authentic to the Aiple
Propeliy and environs, which includes both sawmill ruins and working-class domestic
artifacts. Such interpretation would be complementary to the heritage of the Bergstein
family's domestic and economic endeavors.
Bergstein Property Relocation Mitigation Project
Proposed Site Assessment
Attachments
ATTACHMENTS: BUILDING RELOCATION SITE CONCEPT PLANS
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