HomeMy WebLinkAboutItem 3 Joint Session
3601 Thurston Avenue
Anoka, MN 55303
763.231.5840
TPC@PlanningCo.com
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MEMORANDUM
TO: Daryl Morey
FROM: D. Daniel Licht, AICP
DATE: 12 October 2017
RE: Lakeville – 2018 Comprehensive Plan; Issues Identification
TPC FILE: 135.01
BACKGROUND
This memorandum forwards the initial sections of the draft 2018 Lakeville Comprehensive Plan
including a social profile and community perspectives summary. This information is to be used
as the issues identification process in updating the Comprehensive Plan. The summary of
information resulting from the Issues Identification phase of the work program lays out a
strategic plan for the remainder of the comprehensive plan update process.
Review and discussion of the issues identification process will be as outlined below. Following
the issues identification process, the draft development framework sections of the 2018
Comprehensive Plan will also be reviewed at subsequent meetings as outlined below.
October 19: Planning Commission work session; Social Profile/Community Perspectives
October 23: City Council work session; Social Profile/Community Perspectives
October 30: City Council/ISD 194 work session; Social Profile/Community Perspectives
November 16: Planning Commission work session; Goals and Policies
November 27: City Council work session; Goals and Policies
December 11: City Council/Planning Commission/Economic Development Commission
work session; Development Framework (land use)
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CONCLUSION
The Planning Commission will meet in a work session on 19 October 2017 following their
regular meeting to discuss the issues identification summary sections of the draft 2018 Lakeville
Comprehensive Plan.
c. Justin Miller, City Administrator
David Olson, Community and Economic Development Director
Zachary Johnson, City Engineer
John Hennen, Parks and Recreation Director
Frank Dempsey, Associate Planner
Kris Jenson, Associate Planner
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TABLE OF CONTENTS
INTRODUCTION
Introduction…………………………………………………………………………………………………………………… 1
Comprehensive Planning ……………………………………………………………………………………………… 2
Planning Process …………………………………………………………………………………………………………… 2
THRIVE MSP 2040 COMMUNITY DESIGNATION ……………………………………………………………. 3
SOCIAL PROFILE
Population, Household and Employment Forecasts …………………………………………………..…. 7
Household Type ……………………………………………………………………………………………….…………... 8
Age Characteristics ……………………………………………………………………………..……………………….. 9
Education …………………………………………………………………………………………………………………….. 10
Occupation …………………………………………………………………………………………………………………… 10
Employment Commuting ……………………………………………………………………………………………... 11
Income ………………………………………………………………………………………………………………….……... 12
COMMUNITY PERSPECTIVES
Community Identity …………………………………………………..…………………………………………………. 13
Municipal Urban Service Area ………………….…………………………………………………………………... 13
Land Use ……………………………………………………….……………………………………………………………... 14
Housing .……………………………………………….………………………………………………………………………. 16
Transportation ……………………………………………………………………………………………………………... 17
Schools ………………………………………………………….……………………………………………………………… 20
Airlake Airport ………………………………………...………………………………………………………………….. 21
Parks, Trails, and Recreation …………………...………………………………………………………………….. 21
Sustainability ……………………………………………………………………………………………………………….. 22
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LIST OF FIGURES
Community Designation ………………………………..……………………………………………………………... 5
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LIST OF TABLES
Population, Household and Employment 1990-2040 ……………………………………………………. 7
Household Size …………………………………………………….………………………………………………………. 8
Household Type ………………………………………………………………….………………………………………… 8
Population by Age Group ……………………………………………………………………………………………… 9
Educational Attainment …………………………………………………………………………….…………………. 10
Occupations …………………………………………………………………..…………………………………………….. 11
Travel Time to Work …………………………………………………………………………………………………….. 11
Income Data ……………………………………………………………..………………………………………………….. 12
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INTRODUCTION
Minnesota Statues 473.864, Subd. 2 requires that the City of Lakeville undertake a decennial
review of its Comprehensive Plan to coincide with the review of regional system plans. The
Metropolitan Council has established the ThriveMSP 2040 Plan as the basis for growth and
development within the Twin Cities Metropolitan Area. Equally important to considering
regional system plans, is the opportunity to review the City’s own development policies to
ensure continued orderly growth consistent with evolving community character and goals.
The 2018 Lakeville Comprehensive Plan is comprised of several interrelated chapters and
system plans addressing the natural environment, land use, transportation, and community
facilities and infrastructure comprised of the following separate documents:
2018 Land Use Plan
2015 Parks, Trails and Open Space Plan
2018 Transportation Plan
2018 Sanitary Sewer Plan
2018 Water Management Plan
2018 Stormwater Management Plan
2003 Wetland Management Plan
Capital Improvement Plan (updated annually)
The documents of the 2018 Lakeville Comprehensive Plan are to be used collectively by City
officials, residents, business owners and developers as a guide for the continued growth that is
to occur in Lakeville to the year 2040. With the primary focus of the comprehensive planning
process being land use development, the Comprehensive Land Use Plan chapter includes a
profile of the community’s social characteristics and current issues to be further considered in
developing the overall planning documents.
The specific Land Use Plan section of this document addresses not only existing and future land
use, but provides direction as to the interrelated management of natural resources, housing,
economic development, transportation, and community facilities at a neighborhood planning
district level based on forecasted growth.
The other chapters of the 2018 Lakeville Comprehensive Plan are derived from and support the
policy foundations and plans outlined herein.
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COMPREHENSIVE PLANNING
Lakeville has been progressive in planning for anticipated urban development for over 40 years.
A comprehensive plan was first adopted in 1964 when the community was still a village and
rural township, followed by an update in 1968 after incorporation as a municipality. In 1975,
Lakeville adopted a comprehensive plan update in response to the initial regional policies
developed by the Metropolitan Council. Comprehensive plan updates occurred in 1981, 1988,
1998, and most recently in 2008. These past planning efforts, and their continual
implementation over time, have established a consistent direction for the changes that have
occurred in Lakeville. These past policies represent a foundation for the current
comprehensive planning process such that the 2018 Lakeville Comprehensive Plan is to be
viewed as a refinement of the community’s development framework in response to the
opportunities and challenges present in today’s local and regional environment.
PLANNING PROCESS
It is possible to complete this update of the Comprehensive Plan as a checklist of information to
be provided to satisfy the requirements of Thrive MSP 2040. Such an effort would preclude
the community the opportunity to consider the regional policies of Thrive MSP 2040 in a local
context, and to adapt regional objectives to local priorities. The effectiveness of a
comprehensive plan is greatest when the community sets the agenda for development of the
document. A locally driven planning process will ensure that the final document adopted by
the City Council reflects the interests of the community and will be a useful tool to residents,
developers, and decision makers in the years ahead.
The Comprehensive Plan update process started with six neighborhood meetings held at
locations throughout Lakeville. The purpose of the meetings was to initiate community
involvement in the process by seeking comments, questions, and feedback regarding
development both city-wide and specifically within individual neighborhoods.
The neighborhood meetings were supplemented by a community outreach effort developed by
the Lakeville Planning Department and Communications Department. Information regarding
the Comprehensive Plan, the planning process, and opportunities for input via email, an on-line
survey, and social media comments were provided via the City’s website and social media
formats. Presentations were also given to community organizations including the Lakeville
Rotary, Lakeville Lions, Active Adults at the Heritage Center, and the Lakeville Office of Edina
Realty to further encourage input on the 2040 Comprehensive Plan. A forum was also held for
residential developers to obtain their input directly as part of the planning process.
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THRIVE MSP 2040 COMMUNITY DESIGNATION
The Metropolitan Council has adopted the Thrive MSP 2040 to ensure sustainable land use,
housing, and economic development within the Twin Cities Metropolitan Area in relation to
regional infrastructure for transportation, water resources (including waste water collection
and treatment), and regional parks and open space. The 2018 Lakeville Comprehensive Plan
must address not only local issues and opportunities, but also be consistent with regional
policies established by Thrive MSP 2040.
Thrive MSP 2040 designates the City of Lakeville as a Suburban Edge community. Suburban
Edge communities have experienced significant residential growth that is anticipated to
continue through 2040 with large areas of land remaining to be developed. Lakeville’s growth
characteristics are consistent with this designation, with residential development starting in the
1970s and accelerating through the 1980s, 1990s, and 2000s. Growth in Lakeville slowed
dramatically during the recession occurring in the late 2000s, but has recovered to almost pre-
recession levels. Metropolitan Council identifies that Lakeville has been among the top 10
cities for development within the Twin Cities during this period. Available land supply for
continued development suggests that this trend will continue through 2040 absorbing
remaining agricultural uses.
Suburban Edge communities are characterized by residential neighborhoods oriented towards
single family dwellings, with construction of townhouses and multiple family dwellings being
more recent. Commercial development includes regional and local retail businesses serving the
community’s population. Opportunity for development of industry within Suburban Edge
communities exists based on available land supply and infrastructure. Metropolitan Council
identifies regional issues for Suburban Edge Communities as managing rapid growth and
change related to:
Aligning future development patterns for future transportation systems including transit
expansion, transitways, and walkability.
Development of workforce housing.
Preservation of open space and natural areas.
Water supply and water recharge capacity.
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Community Designations
Source: Metropolitan Council
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SOCIAL PROFILE
The purpose of the social profile is to document the current demographic conditions and
evaluate trends in the characteristics of Lakeville’s population.
Population, Household, and Employment Forecasts
Metropolitan Council has developed projections of population, households, and employment
growth for Lakeville based on anticipated regional growth estimates prepared for Thrive MSP
2040. This information is to be used by the Metropolitan Council in infrastructure sizing for
transportation and utilities to accommodate future development, and by Lakeville at the local
level as the basis for implementation of its local growth management planning efforts.
City of Lakeville
Population, Household, and Employment 1990 – 2040
Actual Estimate Thrive MSP 2040
Projections
1990 2000 2010 2016 2020 2030 2040
Households 7,851 13,609 18,683 20,581 22,300 26,300 30,000
Population 24,854 43,128 55,954 60,965 64,300 74,600 83,500
Employment 6,563 9,885 13,862 16,287 18,200 20,300 22,500
Source: Metropolitan Council, MnDEED
The rate of population and household growth anticipated for Lakeville is generally 10 years
behind the projections adopted as part of the 2008 Comprehensive Plan, which is evidence of
the significant impacts on development that occurred during the recession during the latter half
of the prior decade. With continued available land supply and favorable economic conditions,
residential development in Lakeville will result in approximately 9,400 new households being
added by 2040. The pace of development is projected to accelerate from current levels to 400
households per year between 2020 and 2030, then slowing again as development nears
absorption of available land. The increase in population will not occur at the same growth rate
due to continued decreases in household size. The decrease in household size reflects an aging
population, families having fewer children, and contemporary characteristics of household
makeup. Continued job growth for office, business, and industrial uses will also be a factor in
continued population growth in Lakeville.
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City of Lakeville
Household Size
Year Population Households Persons
Per
Household
1990 24,854 7,851 3.17
2000 43,128 13,609 3.17
2010 55,954 18,683 2.99
2020 64,300 22,300 2.88
2030 74,600 26,300 2.84
2040 83,500 30,000 2.78
Source: U.S. Census 1990, 2000, 2010, Metropolitan Council
Household Type
The U.S. Census provides a demographic profile of the households in Lakeville as shown in the
following table. Approximately half of the households in Lakeville are families with children,
but the percentage of households with families continues to decline since 1990 indicating a
shift in the demographic characteristics of the community.
City of Lakeville
Household Type
Household Type Total Number of
Households
Households w/
Children
1990 2000 2010 1990 2000 2010
Family - Married Couple 5,814 10,011 12,684 3,923 6,638 7,197
Family - Male Householder 222 1,287 753 139 345 465
Family - Female Householder 552 1,683 1,721 430 815 1,152
Total Family 6,588 12,981 15,158 4,492 7,798 8,814
Non-Family Households 1,263 628 3,525 N/A 59 353
Total Households 7,851 13,609 18,683 4,492 7,857 9,167
Source: U.S. Census 1990, 2000, 2010
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Age Characteristics
The U.S. Census illustrates the population of the City of Lakeville by age group. In 1990, the
labor force represented the largest age group, followed by school age children. The labor force
age group continues to be the largest segment of the population, but the retirement age group
has increased significantly since 2000 with a decrease in the school age segment in terms of
percentage of total population. The significant increase in the retried age group may also be
attributed to development of 653 senior housing units within Lakeville over the last 10 years,
which may affect an in-migration of seniors to Lakeville to be closer to adult children. The
median age in Lakeville in 2000 was 32.0 years, which increased to 34.8 years by 2010. The U.S
Census 2011-2015 5-Year Community Survey indicates a further increase in median age in
Lakeville to 35.2 years. Lakeville’s population median age will continue to increase as the
retired age group will grow due to the labor force group aging and people continue to live
longer. This trend is supported by the 2014 Comprehensive Housing Needs Assessments study
by the Dakota County Community Development Agency (CDA) that forecasts the greatest
growth in Lakeville’s population will be persons over 35 years in age. A decline the school age
population will likely be slowed with continued residential development as new families occupy
homes constructed in Lakeville. The Dakota County CDA study projects that Lakeville’s school
and retirement age populations will be equal by 2030.
City of Lakeville
Population By Age Group
Age Group 1990 2000 2010
School Age
Under 18 9,371 37.7% 15,560 36.0% 17,800 31.8%
Labor Force
19-39 9,924 39.9% 14,460 33.5% 14,550 26.0%
40-59 4,592 18.5% 11,085 25.7% 18,240 32.6%
60-64 376 1.5% 797 1.9% 2,137 3.8%
Sub-Total 14,892 59.9% 26,342 61.1% 34.927 62.4%
Retirement Age
65-69 232 0.9% 459 1.1% 1,428 2.6%
70-79 263 1.1% 583 1.4% 1,249 2.2%
80+ 96 0.4% 184 0.4% 550 1.0%
Sub-Total 591 2.4% 1,226 2.9% 3,227 5.8%
TOTAL 24,854 100.0% 43,128 100.0% 55,954 100.0%
Source: U.S. Census 1990, 2000, 2010
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Education
The following table illustrates education levels for residents ages 25 and over using U.S. Census
Data. The U.S. Census 2011-2015 5-Year Community Survey indicates that the percentage of
the population with a high school diploma is 96.4 percent and those with a bachelor degree or
higher educational degree is 47.7 percent. This information indicates a highly educated
population within the community that would support development of businesses and increase
local employment opportunities.
City of Lakeville
Educational Attainment
(Ages 25 and over)
Level Attained 2000 2010
Number % Number %
<9th Grade 349 1.4% 298 0.9%
9th to 12th Grade (no diploma) 766 3.0% 959 2.9%
High School Graduate 5,447 21.6% 6,777 20.5%
Some College (no degree) 6,958 27.6% 7,173 21.7%
Associate Degree 2,670 10.6% 3,868 11.7%
Bachelor’s Degree 7,120 28.3% 10,182 30.8%
Graduate Degree 1,882 7.5% 3,835 11.6%
TOTAL 25,192 100.0% 33,092 100.0%
% of High School Grad + 95.6% 96.2%
% of Bachelor’s Degree + 35.8% 42.4%
Source: U.S. Census 2000, 2010
Occupation
Information from the U.S. Census regarding employment demographics for Lakeville is depicted
in the table below. The largest percentage of Lakeville residents in 1990 were employed in
manufacturing, but by 2000, the largest occupation category was of those employed in trade,
transportation and utilities. Manufacturing and trade occupations continue to be large
percentages of the population, but professional occupations within the population has grown
significantly to be a slightly larger percentage of Lakeville residents’ occupations.
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City of Lakeville
Resident Occupations
1990 2000 2015
Natural Resources and Mining 146 1.1% 75 0.3% 964 2.9%
Construction 915 6.7% 1,566 6.7% 1,350 4.1%
Manufacturing 2,652 19.4% 3,350 14.4% 3,525 10.7%
Trade, Transportation & Utilities 2,586 18.9% 6,425 27.6% 7,061 21.5%
Information and Retail 2,419 17.7% 782 3.3% 868 2.6%
Financial Activities 984 7.2% 2,583 11.1% 3,544 10.8%
Professional and Business Services 737 5.4% 2,115 9.1% 3,590 10.9%
Education and Health Services 1,633 12.0% 3,516 15.1% 6,532 19.9%
Leisure and Hospitality 435 3.2% 1,407 6.0% 2,885 8.8%
Other Services 889 6.5% 888 3.8% 1,736 5.3%
Government 264 1.9% 605 2.6% 1,330 4.0%
TOTAL 13,660 100.0% 23,312 100.0% 32,903 100.0%
Source: U.S. Census 1990, 2000, 2015
Employment Commuting
U.S. Census data regarding travel time to work is shown in the table below. Just under half of
Lakeville residents travel between 10 minutes and 30 minutes to work. The mean travel time to
work in 2010 was 26.0 minutes, which remains mostly unchanged in 2015 at 25.3 minutes.
City of Lakeville
Travel Time to Work (Persons Age 16 and Older)
2000 2010 2015
Less than 10 minutes 9.0% 11.1% 11.0%
10 to 14 minutes 13.1% 14.4% 12.2%
15 to 19 minutes 13.1% 13.4% 12.1%
20 to 24 minutes 17.5% 15.9% 15.5%
25 to 29 minutes 8.2% 7.7% 9.1%
30 to 34 minutes 16.1% 15.9% 17.8%
35 to 44minutes 9.5% 9.7% 9.4%
45 to 59 minutes 6.3% 9.3% 8.6%
More than 60 minutes 3.3% 2.6% 4.3%
TOTAL 100.0% 100.0% 100.0%
U.S. Census 2000, 2010, 2015
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Income
Census data regarding income for Lakeville residents and households is shown in the following
table. Median family income has deceased while the percentage of people below the poverty
level increased since the end of the recession that occurred during the last decade. Per capita
income has increased during the same period.
City of Lakeville
Income Data
Per Capita
Income
Median Family
Income
Percent of
Population
Below
Poverty Level
1990 $15,476 $46,779 3.0%
2000 $26,492 $76,542 2.0%
2010 $35,391 $98,761 3.5%
2015 $37,357 $95,130 5.5%
Source: U.S. Census 1990, 2000, 2010
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COMMUNITY PERSPECTIVES
Comprehensive planning efforts are most effective when the community sets the agenda for
the project, entitling them to a sense of ownership in the final policies and plans. Initiating
development of the 2018 Lakeville Comprehensive Plan includes an issues identification process
to outline opportunities and issues that guide the remaining work program to ensure
consistency with local priorities and objectives, while complying with regional policy. The
summary of issues outlined in the following pages will be further outlined in the development
framework and system plans developed throughout the comprehensive planning process.
Community Identity
Lakeville has a positive community identity evidenced by the overwhelmingly positive response
from neighborhood meeting participants, survey responses, and input from developers. The
character of the community as family oriented, safe, and having a strong sense of place were
described by many as providing a high quality of life within Lakeville. Developers also
identified community character as one of the significant reasons growth in Lakeville will
continue to be strong. Specifically highlighted in the responses received was praise for the
City’s parks and trails system, public safety services, accessibility of City and school
governments, and planning for future growth while maintaining existing businesses and
neighborhoods.
Strengthening community identity is also an opportunity for Lakeville moving forward. Further
development of office, retail, and service businesses (restaurants) will allow for more of a
live/work environment for current residents that noted a need to seek employment or
patronize areas outside of Lakeville. Efforts to enhance and promote downtown Lakeville as a
destination area will also strengthen community identity as a focal point of the City and its
heritage. Finally, continued improvement to the City’s transportation network of streets and
trails will improve connectivity between neighborhoods and destination areas of the City
allowing access to commercial areas or enjoyment of recreational opportunities that exist with
the developing system of greenway corridors.
Municipal Urban Service Area
The 2008 Comprehensive Plan included designation of staged Municipal Urban Service Area
expansion areas. This has been Lakeville’s primary growth management tool to ensure that
development occurs in an orderly, contiguous manner that provides for full utilization of
infrastructure investment. It had been anticipated that the City would be nearing full build out
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of the 2030 MUSA after 2020 and that advance consideration would need to be given to
planning for the Urban Reserve area. However, the late-2000s recession set back the pace of
development by approximately 10 years. The 2040 MUSA map adopted by Metropolitan
Council as part of Thrive MSP 2040 designates all of Lakeville, except for the Permanent Rural
areas in west Lakeville, as being within the MUSA.
Staging of sanitary sewer expansion into undeveloped areas of Lakeville, particularly the
current Urban Reserve Area adjacent to the Cedar Avenue corridor and the potential for
extension of service into Permanent Rural areas, were topics raised at the neighborhood
meetings. The issue was raised primarily from the perspective of those seeking to develop
lands within the Urban Reserve Area, as well as areas in the current MUSA or MUSA Expansion
Areas. Expansion of sanitary sewer service must address not only physical extension of
utilities, but also the corresponding costs of development for other services and infrastructure,
specifically for transportation improvements. Residential developers cited costs for
transportation improvements and development fees as primary challenges for on-going
development in Lakeville. Those within the Permanent Rural areas of the City questioned
extension of sanitary sewer in terms of wanting to maintain the existing character of these
areas, which would be threatened by utility availability and the potential to develop urban uses.
The City will need to evaluate the timing of MUSA expansion for the remainder of MUSA
Expansion Area B and the Urban Reserve as part of the 2018 Comprehensive Plan to ensure a
continuation of orderly, managed growth.
Residential developers have inquired about the potential for annexation of territory from
surrounding townships to allow for extension of sanitary sewer utilities for development. With
Lakeville nearing absorption of available land for urban development near 2040, there will likely
be additional interest in annexation by land owners and developers as the supply of vacant land
within the City decreases but the rate of growth is projected to remain constant. Until the
supply of land within Lakeville is nearly fully absorbed by development occurring in accordance
with the City’s growth management policies, annexation of additional land to the City and
expansion of the MUSA for residential development is most likely premature, but a policy will
need to be outlined as part of the current planning process.
Land use
Land use ultimately becomes the primary focus of any comprehensive planning effort, with all
other issues being related to or in support of the changes growth and development will bring.
The community engagement process for the 2018 Lakeville Comprehensive Plan is no different.
With the development that has occurred in Lakeville, the issues related to land use include both
new development within existing rural areas, as well as continued infill of areas where
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development has already occurred. As Lakeville continues to mature and approach complete
buildout of planned urban areas, opportunities for redevelopment will be an emerging issue.
A main focal point of the 2018 Lakeville Comprehensive Land Use Plan will be the staging of
development and guiding of land uses for the Urban Reserve Area along the Cedar Avenue
corridor. The 2008 Lakeville Comprehensive Plan anticipated that there may have been
demand for development within this area by this time. However, the recession occurring
during the latter portion of the 2000s delayed the rate of growth such that expansion into the
Urban Reserve was limited to the northern edge with the Avonlea residential planned unit
development. Looking ahead to 2040, the Urban Reserve is seen to be a unique opportunity
for the community to define the character of the last remaining large area currently planned for
development in Lakeville.
Comments both at neighborhood meetings and from the community survey support a wide
range of land uses within the Cedar Avenue corridor, similar to that which has already
developed to the north of Lakeville. This type of development would include higher density
housing alternatives and mixed uses, with the arrangement of land uses encouraged to follow
Transit Oriented Design (TOD) principles. These comments are consistent with the
commitments Lakeville made for density within the Cedar Avenue corridor as part of the 2008
Comprehensive Land Use Plan in relation to planning for extension of the Cedar Avenue Bus
Rapid Transit (BRT) corridor (Red Line) south into Lakeville. The type of development for the
Urban Reserve Area that was described during the neighborhood meetings would also address
the trend that has occurred after the recession in the late 2000s of developing land guided for
medium or high density residential uses with single family dwellings on smaller lots, while also
providing opportunity for expanding work force housing in proximity to existing and planned
office and industrial uses.
Another topic that generated broad-ranging input was the need to continue development of
commercial, office, and industrial uses within Lakeville. Residents desire to have more local
business options to patronize, particularly with regards to restaurants, as well as regionally
oriented commercial uses that would expand business choices within the community. The
balance of office and industrial uses and the location of where the transition occurs between
these uses south of CSAH 70 and east of I-35 was raised as a subject of review for the
comprehensive planning process. Office and industrial development is viewed as an
opportunity to expand employment within Lakeville and provide the potential for residents to
both live and work within the City as a convenience and cost savings benefit. Increased
employment within the community also has a corresponding effect of increasing day-time
market potential for retail and service commercial businesses, especially restaurants, improving
the viability for such businesses.
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Community input from neighborhood meetings regarding land use was generally more focused
on localized issues, such as continued development along Kenrick Avenue between CSAH 50
and CSAH 70, potential redevelopment of existing residential uses north of CSAH 70 near Dodd
Boulevard, or expansion of commercial uses adjacent to 205th Street west of I-35. These types
of issues will be explored in detail during the planning district efforts in developing the 2040
Land Use Plan.
Housing
Within the discussion of land use, housing was also extensively commented upon as part of the
community input process. Single family dwellings have been and will continue to be the
primary form of housing within Lakeville projected by Metropolitan Council, as well as
anticipated by residential developers. Residential developers anticipate that the housing
market in Lakeville will continue to be focused primarily on new families and move-up
households, followed by millennials. Demand for senior housing is anticipated to be strong
both by residents and developers. Both residential developers and residents see opportunities
for diversification of housing within Lakeville for detached townhome, two-family, and
townhouse uses, with options for single level living included within these types of dwellings,
and attainable senior housing. The decline of attached townhouse development since the late
2000s recession has been noted and there was support for increased construction of this type
of housing along with opportunities for apartments. Residential developers spoke of challenges
for continued residential growth because the land that was available at a low cost after the
recession has now been mostly platted and land owners are again seeking premium value for
their properties. Residential developers also indicate that development costs, including
infrastructure and fees, effect affordability. At the same time, existing neighborhoods will
require more attention to preservation and maintenance in the future, which can serve to
provide opportunities for housing accessible to new families and work force housing.
Thrive MSP 2040 requires the City to achieve an average density of three to five dwelling units
per acre for residential development within the MUSA. Thrive MSP 2040 further includes a
Housing Policy Plan that the City has reviewed in advance of its efforts to undertake an update
of the Lakeville Comprehensive Plan. Lakeville concurs with the Metropolitan Council that
providing for a diversity of viable housing options for persons of all ages, incomes and life
circumstances is a fundamental goal important to the quality of life in the community and the
economic vitality of the City. The City’s review of the Thrive MSP 2040 Housing Policy Plan and
the comments outlined herein are made in consideration of Lakeville’s own vision for growth
and development that will continue in the community as well as the guidelines of the Thrive
MSP 2040 regional plan:
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The Thrive MSP 2040 Housing Policy Plan changes the focus of the document from
guiding development of regional and local housing policy requiring the City to
implement programs, fiscal devices and other specific actions (Minnesota Statutes
473.859, Subd. 4) to achieve workforce housing targets defined for Lakeville by the
Metropolitan Council. The City of Lakeville strongly believes that our elected officials
are acutely aware of the City’s housing needs and consistently review our plans and
goals to address the changing demographics in our city.
The Metropolitan Council’s allocation for workforce housing units includes adjustment
factors such that cities like Lakeville are expected to develop workforce housing beyond
their proportionate share of the region’s attainable housing needs within the 10-year
period from 2020 to 2030.
The City will need to designate within its 2040 Staged MUSA Expansion Areas Plan and
2040 Land Use Plan a minimum of 176 acres of land for development by 2030 at
densities of eight dwelling units per acre or more at which housing units available at 80
percent of the AMI can be constructed. The area of land for development at these
densities likely can be guided along Cedar Avenue within the Special Plan Area
designated by the 2008 Lakeville Comprehensive Plan.
The City is concerned that Metropolitan Council’s allocation of 35 percent of the new
housing units in Lakeville to be constructed between 2020 and 2030 be attainable at less
than 80 percent of AMI is not likely to be achieved given an evaluation of the existing
housing supply, current and probable future market factors or fiscal resource
requirements for development in Lakeville.
The inability of the City to meet the Metropolitan Council’s targets for workforce
housing has potentially severe implications for other elements of development in
Lakeville due to the resulting effect to the City’s Housing Performance Score. A low
Housing Performance Score would decrease the City’s ability to obtain certain
Metropolitan Council housing incentive funding for development of attainable housing
and regional funding for critical infrastructure needed to accommodate overall
allocations of development as part of Thrive MSP 2040.
Transportation
Thrive MSP 2040 elevates transportation system planning to a policy level to emphasize a
greater correlation between land use and transportation. This has been a fundamental
approach to planning in Lakeville since the 1970s, and continues with the most recent 2008
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Lakeville Comprehensive Plan. However, the Thrive MSP 2040 Transportation Policy Plan seeks
to utilize transportation planning and investment to effect changes in development practices in
Suburban Edge communities, such as Lakeville, to align with plans for future expansion of
transit services and transitways. The ability to realize this goal of shifting from automobile
oriented development to a more balanced approach is good in theory, but requires necessary
levels of investment balanced throughout the Twin Cities Metropolitan Area and an overall
transportation system that works to support planned development both in a regional and local
context.
Expansion of the MUSA to 2040 in Lakeville would include additional urban development being
planned for areas adjacent to the Cedar Avenue Bus Rapid Transit (BRT) Corridor (Red Line).
Thrive MSP 2040 will require that areas adjacent to the Cedar Avenue BRT Corridor (Red Line)
provide a minimum residential density of 8 dwelling units per acre, which is greater than the 7
units per acre density that Lakeville committed to within the 2008 Lakeville Comprehensive
Plan. For the City to allow this level of development along the Cedar BRT corridor (Red Line),
and at a level of 3 to 5 dwelling units per acre for all residential development within the MUSA
in Lakeville, Metropolitan Council needs to be prepared to provide transportation system
improvements parallel with construction of residential dwellings. Moreover, the investments
in transportation system improvements must recognize Lakeville’s own strategies for
promoting transit in consideration of the community’s vision for residential development
focusing on centralized transit facilities on I-35 and Cedar Avenue allowing commuters to have
park and ride options. In terms of economic development, planning and investment in
transportation systems from Lakeville’s perspective must provide a balanced approach for
employment and freight so as to facilitate development of areas of the City planned for
commercial, office, and industrial uses, and not to function only as an expressway to
employment centers outside of Lakeville.
The Thrive MSP 2040 Transportation Policy Plan identifies a Current Revenue Scenario and
Increased Revenue Scenario for funding operation and maintenance of current transportation
systems and as a basis for timing possible capacity improvements to the regional transportation
system. The Current Revenue Scenario, with only inflationary increases in revenue (but
decreasing State and Federal aid below inflation), severely limits maintenance and operations
spending and the ability to undertake capacity improvements to the point that levels of service
will degrade and become a brake on regional development. The effects of such a funding
scenario would be most significant in Suburban Edge communities where most of the projected
growth will occur through 2040 that requires additional infrastructure improvements, yet there
are only maintenance and minimal operational improvements designated for both highways
and transit for Lakeville.
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Even under the Increased Revenue Scenario, the additional funding that would be obtained
(from unidentified sources), would not be allocated on a regional basis to areas where
development is guided to occur at densities dependent on expanded system capacity. There is
wide community support for expansion of transit into Lakeville based on comments received at
neighborhood meetings and the community surveys. But, funding is allocated to extend the
Cedar Avenue BRT (Red Line) to the existing park and ride facility at 181st Street by 2019.
However, the Thrive MSP 2040 Transportation Policy Plan designates no other capacity
improvement to occur on I-35, Cedar Avenue or other major roadways benefiting Lakeville
under either the Current Revenue Scenario or Increased Revenue Scenario.
Lakeville remains concerned about the lack of planning and financing to improve regional
transportation infrastructure necessary to support mandated development forecasts within the
community. This concern is raised after a period during which Lakeville proactively addressed
increasing traffic congestion by undertaking, at its cost, $28.6 Million in improvements to
regional roadway systems, the City Council reaching agreement with the Metropolitan Council
to expand the Metropolitan Transit District to include Lakeville, and the City actively
participating in the planning for the proposed Interstate 35 (Orange Line) and the Cedar Avenue
BRT (Red Line) Corridors. Transportation priorities identified through comments from the
community include the realignment of Dodd Boulevard at Cedar Avenue and extension of 179th
Street to Pilot Knob Road, construction of 185th Street between Dodd Boulevard and Cedar
Avenue, as well as upgrades of existing streets planned to serve as collector roadways as
development expands.
These projects benefit not only Lakeville residents and businesses, but transportation system
users in adjacent developing cities and townships. However, these facility improvements alone
will not be adequate to provide for a functional transportation system and capacity for
Lakeville’s forecasted growth through 2030, much less 2040. City officials will need to consider
as part of the 2018 Lakeville Comprehensive Plan update how to incorporate the 8 dwelling
units per acre density requirement and policies to promote Transit Oriented Design along the
Cedar Avenue corridor, as recommended by Thrive MSP 2040, when there is no funding for
extension of the Cedar Avenue BRT (Red Line) south of the 181st St. park and ride. Likewise, the
I-35 coordior would provide opportunities for higher density housing and/or transit oriented
development if a regional commitment was in place to extend the Interstate 35 (Orange Line)
BRT south of Kenrick Avenue (CSAH 50) to CSAH 70, which would also serve planned office and
industrial uses.
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The Thrive MSP 2040 Transportation Policy Plan outlines investment and direction plans for
how the limited transportation funding that would be available under either the Current
Revenue Scenario or Increased Revenue Scenario is to be allocated. The criteria for allocation
of these funds is established by the Thrive MSP 2040 Transportation Policy Plan with minimal
regard for regional balance, utilizing social economic and housing data in such a way so as to
create built in bias for projects benefiting Urban Center communities over other areas of the
Twin Cities Metropolitan Area. Furthermore, the advisory groups recommending the criteria
for transportation planning and recommendations for project investment do not include
adequate representation necessary for regional balance in the Metropolitan Council’s decision-
making process. Lakeville believes that increased representation at a policy making level in
advising Metropolitan Council and increased financial spending from Federal, State, and
regional governments on a regional basis is an absolute necessity to expand the capacity of
transportation system infrastructure for Suburban Edge communities, including transit and
roadways for automobiles and freight. Residential developers also discussed transportation
improvements and funding as being a major challenge for growth in communities such as
Lakeville where infrastructure investments must be made simultaneously with land use
development. Without such a commitment to funding needed for transportation system
maintenance, operation and capacity expansion, Lakeville will be unable to support projected
population, household and employment growth within the City and will need to contemplate
appropriate measures to address this issue.
Schools
Lakeville is served by three school districts; Lakeville Area Public Schools (ISD 194), Apple
Valley-Rosemount-Eagan (ISD 196), and Farmington (ISD 192). The schools serving Lakeville
were among the most numerous responses by residents as contributing to the high quality of
life within the community and by developers as a factor in the strong residential growth rate
within the City. The City and the three School Districts have established coordinated responses
to growth in Lakeville to ensure that quality facilities and infrastructure needed to support
education is provided.
The demographic changes occurring within the community will affect school operations and
facility planning. Specifically, increases in population and households and the demographics of
household size and household composition, age characteristics, and income will all translate to
the student population at Lakeville schools. As noted, continued maturation of existing
developed areas will change the needs of existing school facilities. At the same time, new
development will continue to bring in new families and slow the decline in school age
population within Lakeville, although within different areas of the City. Some new families will
acquire housing in existing developed areas of Lakeville backfilling families leaving the area and
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thus utilizing existing education facilities. Additional input as to these changes at an
enrollment level is an opportunity for discussion between the City and School Districts.
The demographic and land use changes that will occur through 2040 will require maintenance
of existing facilities and potential new facilities to serve areas of Lakeville not yet developed.
Therefore, in considering the establishment of the 2040 Land Use Plan, the City must
coordinate efforts with the School Districts to anticipate facility changes and locations for new
facilities. Such locations must be complementary to surrounding residential development,
must be served by City sanitary sewer and water utilities, and must have access to
transportation infrastructure including streets, as well as safe routes to school via sidewalk,
trail, and greenway corridors.
Airlake Airport
The Metropolitan Airports Commission (MAC) is in the process of developing the 2035 Airlake
Airport Long-Term Comprehensive Plan. Airlake Airport serves primarily personal, recreation,
and business aviation in the southern portion of the Twin Cities Metropolitan Area. Airlake
Airport is classified as a Complementary Reliever facility as part of the MAC system, a Minor
Airport by Metropolitan Council, and as an Intermediate Airport by the Minnesota Department
of Transportation. The function of the airport is not recommended to change through 2035.
Growth projections prepared as part of the 2035 Airlake Airport Long-Term Comprehensive
Plan suggest a potential need for expanded facilities, including runway expansion and landside
support facilities including indoor hanger storage and expanded apron. MAC has indicated that
expansion of the runway can be achieved without the realignment of Cedar Avenue east of the
airport. The potential expansion of landside facilities at Airlake Airport may include additional
needs for sanitary sewer and water utilities, which are provided by the City. The MAC has
approved petitioning the City for annexation of 118 acres of the Airlake Airport currently
outside of Lakeville.
Parks and Trails
The City’s parks and trails system and recreation programing has been consistently identified as
a significant community amenity. The development of the parks, trails, and recreation system
provides for preservation of natural resources, provides neighborhood focal points, and
accommodates community events such as Pan-O-Prog, athletic associations, and recreation
programs, all of which bring Lakeville together. Evolution of the parks and trail system to
include more greenway corridors as linear parks is also commented on positively as providing
recreation opportunities (as well as serving a transportation function) accessible and appealing
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to a broad range of age groups. Expansion of the parks and trails system is anticipated to
continue with development and provide for completion of park service areas and trail
segments. Comments regarding the expansion of the parks and trails system focused on
adding elements that serve community-wide users such as a community center and indoor
athletic and play facilities, splash pads, a band shell, and expanded recreation opportunities at
pubic water accesses.
Sustainability
An underlying theme for all elements of the 2018 Lakeville Comprehensive Plan is sustainability.
Thrive MSP 2040 include policies on community resiliency intended to position cities to respond
to issues related to climate change. While the regional policy is focused on issues of climate
change, adopting policies to promote sustainable development will reduce stress on the natural
environment and reduce costs associated public services and facilities. These policies mirror
efforts of the Minnesota Pollution Control Agency’s GreenStep Cities program that outlines 29
best management practices to implement in the areas of buildings and lighting, land use,
transportation, environmental management, and economic and community development.
There is local support for sustainable development policies in the form of maximizing
protection and preservation of natural areas in Lakeville, providing infrastructure for electric
cars, working to expand transit options both as part of the regional system and intra-
community options, expanding Lakeville’s system of sidewalks, trails, and greenway corridors
both to promote healthy living and serve as an alternative transportation option, allowances for
local food access, and access to solar energy.
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