Title
RESOLUTION REQUESTING A LAND USE STUDY FOR THE FORMER LESTER PARK GOLF COURSE PROPERTY.
Body
By COUNCILORS DURRWACHTER, AWAL, FORSMAN AND NEPHEW:
WHEREAS, the City of Duluth ("City") has long operated two municipal golf courses, Enger Park Golf Course and Lester Park Golf Course; and
WHEREAS, a 2019 task force and subsequent City analysis determined that the sustained operation of two public golf courses was financially unsustainable, citing failing infrastructure and declining revenue; and
WHEREAS, on June 12, 2023, the City Council unanimously approved Resolution 23-0485R, which formalized the previous decision to permanently close the Lester Park Golf Course as a municipal golf operation and committed to maintaining Enger Park Golf Course as the sole location for City-run golf; and
WHEREAS, the City of Duluth previously transferred 37.5 acres of the Lester Park Golf course property to DEDA for the purpose of developing mixed-income housing while leaving the remainder of the property primarily zoned as parkland, and
WHEREAS, a Lester Golf Working Group, established and appointed by Mayor Reinert in 2024, met for over a year and while failing to arrive at a consensus outcome did articulate several key components to be included in future reuse of the Lester Park Golf Course property; and
WHEREAS, the City Council recognizes the working group final report and the diverse public interests regarding the property, and with this resolution expresses a policy preference for redevelopment options that incorporate the pressing need for the critical city priority of housing, as well as some form of publicly available golf-related recreation, public green space, and the connection of adjacent hiking, biking, and ski trails as part of an overall redevelopment plan; and
WHEREAS, on June 16, 2025, the City Council unanimously approved Resolution 25R-0520R, which set increasing housing supply for residents across all income levels as a policy priority for the City of Duluth; and
WHEREAS, the Duluth Economic Development Authority (DEDA) is the City's economic development agent, and the Housing and Redevelopment Authority (HRA) is the City’s leading agency for housing and community development, making collaboration a natural fit for a successful housing-centric outcome; and
WHEREAS, the City Council recognizes the diverse public interests and contemplates the potential transfer of any additional portions of the Lester Park Golf Course property to DEDA for purposes of economic development; and
WHEREAS, portions of the property could be utilized for publicly available parkland and should be considered for community benefits or permanent protection as part of a Land Use Study; and
WHEREAS, the Duluth City Administration's plan contemplates the potential transfer of a portion of the Lester Park Golf Course property to DEDA, and collaboration with city partners like HRA to facilitate a possible mixed use neighborhood development; and
WHEREAS, to ensure a balanced, holistic, and publicly supported outcome, the City Planning Staff must conduct a detailed Land Use Study on the property prior to any conveyance of any portion of the property to DEDA or any other entity for development.
NOW, THEREFORE, BE IT RESOLVED that the City Council hereby approves the general concept of a mixed-use development on the approved Land Use study of portions of the former Lester Park Golf Course property. The city council will consider the opportunity to address the City's housing shortage and grow the city’s commercial tax base with complementary neighborhood-oriented commercial development.
The City Council further affirms its intent to transfer a Land-Use Study approved portion of the property to the Duluth Economic Development Authority (DEDA), the closing of which would be conditional upon the successful completion of a formal study that incorporates elements included below. Any net sale proceeds to DEDA from a development will be contributed back to the City, with 50% reinvesting in the City Parks Maintenance and Capital budgets, with preference for reinvestment at the Enger Park Golf Course and 50% going into a revolving loan fund to support development at the site.
BE IT FURTHER RESOLVED THAT DEDA is strongly encouraged to collaborate with the Duluth Housing and Redevelopment Authority (HRA) in the planning and execution phases of this development to maximize the public benefit, especially in addressing diverse housing needs.
BE IT FURTHER RESOLVED that as a condition in the Development Agreement and prior to the closing of any property transfer, the City shall commit to and conduct a comprehensive study on the entirety of the former Lester Park Golf Course property, including a robust public engagement process to be completed within 9 months of the adoption of this resolution.
BE IT FURTHER RESOLVED that the Land Use Study shall serve as a supplement to the City's Comprehensive Plan and Parks Essential Open Spaces Plan; it shall specifically consider and seek to balance parkland, housing, commercial, and permanently protected green space. The study shall include, but not be limited to, the following components:
(a) General Land Use Study Components:
(1) Assessment of previous planning efforts, including the lower 37. 5 acres in which DEDA has an agreement to develop, current conditions, and data analysis.
(2) Clearly defined objectives (Purpose for undertaking the plan).
(3) Defined geographic area (Project area).
(4) History/background and past planning efforts.
(5) Analysis of current demographics/trends/school district (population, employment, housing).
(6) Current land use/zoning/transportation/trails/recreation areas and environmental characteristics.
(7) Short-term infrastructure and long-term infrastructure maintenance costs associated with various development options.
(8) Review the relevant Comprehensive Plan, Essential Spaces Parks Plan, policies, and the Future Land Use Map.
(b) Stakeholder Engagement Process:
(1) Identify stakeholders (neighborhood, community groups, commissions/authorities, DEDA, HRA, Non-Profit Organizations).
(2) Professionally facilitated education, outreach, and stakeholder engagement, including multiple public meetings and open houses.
(c) Plan Recommendations:
(1) Development of a vision statement, goals, objectives, and strategies.
(2) Define proposed future land use changes that balance housing, commercial, and protected green space uses.
(3) Consider development options that incorporate publicly available recreational facilities, such as a pickleball court, dog park, neighborhood playground, basketball court, hiking trails, biking trails, and ski trails.
(4) Consider development options incorporating or preserving publicly available golf or golf-centric recreational opportunities.
(5) Determination of which portions of the property are developable, where development is appropriate, and where a permanent conservation status is appropriate.
(6) Recommendations for transitions between land uses, preservation of high-value open space, and improvements to transportation and utility infrastructure.
BE IT FURTHER RESOLVED that the results and recommendations shall be subject to a Parks and Recreation Commission review, a Planning Commission Public Hearing, and final approval by the City Council prior to the finalization of the closing of any transfer of property.
Statement of Purpose
STATEMENT OF PURPOSE: This resolution seeks to accomplish several goals. First, it requests the city’s planning staff to conduct a detailed Land Use Study for the former Lester Park Golf Course property, to include specific components and robust public engagement processes. Second, this resolution reaffirms the City’s priority to increase housing supply for residents across all income levels in all neighborhoods. Finally, this resolution anticipates the future transfer of additional Lester Park Golf Course property to DEDA for redevelopment that includes the priorities and conditions set forth in this resolution.