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3601 Thurston Avenue
Anoka, MN 55303
763.231.5840
TPC@PlanningCo.com
1
MEMORANDUM
TO: Daryl Morey
FROM: D. Daniel Licht, AICP
DATE: 21 November 2017
RE: Lakeville – 2018 Comprehensive Plan; Policy Planning
TPC FILE: 135.01
This memorandum forwards goal and policy statements to be used as the basis of the draft
2018 Lakeville Comprehensive Plan.
City staff has discussed that rather than incorporating the goals and policies as a specific
chapter within the Comprehensive Plan, the goals and policies will be included with the
relevant sections of the development framework and system plans. This approach will allow
the reader to better understand the objectives of the Comprehensive Plan element and how
the direction for the plan has been established. Although incorporated into specific topic
areas, the goals and policies are meant to be applied across the various chapters of the
Comprehensive Plan as may be appropriate in the context both for drafting of the
Comprehensive Plan update as well as a guide for future decision making.
The Planning Commission held a work session on 16 November 2017 following their regular
meeting to discuss the draft goals and policies of the draft 2018 Lakeville Comprehensive Plan.
Input from the Planning Commission have been incorporated into a revised draft.
The City Council will subsequently review the draft goals and policies of the 2018
Comprehensive Plan at their work session on 27 November 2017.
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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POLICY PLANNING
The foundation of the 2018 Lakeville Comprehensive Plan are community goals that establish
Lakeville’s objectives for its developed environment and the means to achieve the desired
outcomes through policies implementing the Comprehensive Plan. Lakeville’s goals and policies
will be the basis of and complement the City’s maps, ordinances, and codes that are more fixed
documents in addressing development activity guided by the 2040 Land Use Plan.
These goals and policies will also allow the City to adapt to emerging development trends not
anticipated today that will provide continuity for the 2018 Comprehensive Plan for future City
Councils, Planning Commissions, property owners, residents and developers. More than any
other element of the Comprehensive Plan, the statement of community goals and policies is an
evolution of prior Comprehensive Plans that are expanded upon from the City’s perspectives and
influences at this point in time.
The goals and policy statements to be included within the development framework and system
plans do not establish priorities or timelines for actions, but rather provide criteria to be used to
direct the decision-making process. A single policy may outline a course of action in some cases,
but more frequently a group of policies relevant to a given situation will apply. The format of the
terms “goals” and “policies” where they are included in the development framework and system
plans are used in context of the following definitions:
Goals: The outcome that will result in achieving the kind of development
environment that is desired in Lakeville.
Policies: Actions that serve as a guide to help make present and future
decisions that will result in achievement of Lakeville’s stated goals.
2
COMMUNITY PLANNING PRINCIPLES
The primary function of municipal government is to provide an orderly, safe, productive, and
enhanced environment for living and working. While this encompasses social, physical, and
economic opportunities and issues, the City of Lakeville primarily influences the quality of life
for its residents through the physical environment. The following are a list of fundamental
principles that guide the planning process to develop the 2018 Lakeville Comprehensive Plan:
Facilitate an open public process to obtain input from residents, property owners, and
City leaders to insure the 2018 Lakeville Comprehensive Plan reflects the values and
goals of Lakeville.
Foster a strong sense of identity and quality character for Lakeville.
Enhance the character of Lakeville by blending urban development with natural
amenities and minimizing impacts to environmental resources.
Expand the existing system of public parks, trails, and open spaces to provide equitable
distribution of recreational opportunities in Lakeville; preserve and wisely use natural
resources; preserve scenic, aesthetic, historical community character, which all
contribute to a high quality of life.
Promote the economic vitality of Lakeville businesses and industries to provide for
needed services, employment opportunities, and a diversified tax base in support of the
growth that is to occur.
Coordinate with State and regional government to develop a functional transportation
system integrating local and regional facilities for all modes of pedestrian, vehicle, mass
transit, and freight options to accommodate existing development and future growth.
Provide for the health, safety, and welfare of the public by ensuring managed growth
occurs within a framework of local and regional infrastructure and services of sufficient
capacity to meet community needs and expectations.
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NATURAL RESOURCES
The importance of continued community growth integrated with natural resources is
recognized in Lakeville. The proper preservation, protection and utilization of the natural
environment as a valuable amenity or as a constraint or barrier for development are guided by
the following goals and policies.
Goal: Growth in Lakeville shall be accommodated while protecting the environment by
integrating new urban development with the City’s natural resources in a compatible manner.
Policies:
Consider Lakeville’s environmental amenities and constraints in the formulation of the
2040 Land Use Plan and establish compatible land use patterns that relate to
environmental features.
Continue to utilize Lakeville’s established development regulations or formulate new
performance standards and design requirements to protect natural features important
to the community and vital to desirable development.
Integrate new development and subdivision design with the natural characteristics of
the land to enhance the preservation of attractive natural amenities in Lakeville.
Create awareness of the importance of the environment through community education,
volunteerism in open space maintenance, and Lakeville citizen stewardship activities.
Support programs aimed at reducing water, air, glare, and noise pollution and
incorporate State and Federal pollution regulations into Lakeville policy or regulations
when appropriate.
Adopt policies and implement best management practices outlined by the Minnesota
Green Step Cities program as applicable.
Continue to implement and review the adequacy of buffer yard setbacks along major
street thoroughfares in Lakeville to mitigate pollution concerns related to traffic.
Require all development near Interstate 35 and Airlake Airport to consider and address
through compatible land uses the impacts of the noise levels in the area when
designating land uses and activities to ensure that there will not be an expectation in
the future for noise abatement measures.
Promote energy efficient, low impact lighting for all development with light sources
required to be reflected downward to prevent glare or light spillage on adjoining
properties, rights-of-way, or skyward.
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Provide incentives for energy, water, and sustainability improvements for existing
developed properties.
Protect existing and future trees through species diversification in parks, buffer yards,
and new developments.
Goal: The quality of Lakeville’s water resources including lakes, wetlands, streams, and ground
water resources shall be protected and improved.
Policies:
Work with the DNR to review and implement requirements of the Shoreland Overlay
District to strengthen the aesthetic character of Lakeville’s lakes.
Enforce floodplain regulations to regulate development in a manner consistent with
Federal and State requirements to protect public safety and property from damage due
to flooding.
Incorporate best management practices for stormwater management to control and
treat stormwater runoff from development.
Encourage natural vegetative buffer areas along all of Lakeville’s lakes, wetlands, creeks,
and drainageways.
Explore alternative water supply sources to ensure adequate resources beyond 2040.
Adopt and enforce ordinances that protect ground water resources from pollution to
insure safe municipal water supplies in Lakeville.
Minimize irrigation by requiring proper soil preparation to insure deep rooting of new
landscaping for new development in Lakeville.
Discourage the use of herbicides, pesticides, and phosphorous fertilizers on lawns to
prevent runoff to wetland areas and to prevent contamination of ground water and
surface water resources.
Implement strategies for the control of invasive/exotic plant species in Lakeville’s lakes,
greenways, natural areas, and open spaces.
Goal: Environmentally sensitive areas in Lakeville characterized by poor soils, steep slopes, tree
massing, wetlands, and natural wildlife habitat shall be protected from degradation due to
development.
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Policies:
Encourage tree preservation as part of the site development and subdivision process to
more actively maintain existing natural vegetation.
Continue implementation of programs designed to protect trees in Lakeville through
disease control and re-forestation.
Determine allowed land uses based on soil suitability for building sites and depth to the
water table.
Maintain natural wetlands, ponding areas, drainageways, and floodplains in an effort to
establish a storm drainage system in Lakeville that promotes storm water infiltration
and water quality.
Restrict alteration of wetlands, floodplains and drainageways and other features in
Lakeville that perform important environmental functions in their natural state; where
appropriate maintain such natural features so that storm water can be adequately
managed without construction of storm sewer.
Require subdivisions to plat lots with minimum lot area exclusive of the boundaries of
storm water ponds, delineated wetland boundaries, and required wetland buffers to
insure adequate buildable area and usable yards to avoid encroachment.
Require erosion and compaction control plans for all site grading to prevent erosion,
dust, and soil sedimentation and prohibit development on slopes identified as where
erosion or slippage may occur.
Construct drain tile around building foundations and along streets in soil areas
characterized by moisture retention, high water tables, or perched water tables.
Promote low impact development and higher quality surface water treatment facilities
in Lakeville through the use of infiltration and bioretention where appropriate while
requiring all new development to adequately address on-site storm water needs and
requirements to minimize potential negative impacts to the hydrologic system.
Goal: Gravel resources shall be accessed in a manner that protects Lakeville’s environment, is
compatible with adjoining land uses, and is consistent with the City’s long range planning.
Policies:
Allow gravel mining only as an interim land use within rural service areas.
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Consider compatibility with surrounding land uses and mitigation measures in the
location and operation of gravel mining operations to reduce nuisance concerns such as
noise, dust, traffic, etc.
Require detailed gravel pit reclamation plans that identify ultimate end use of the
property and the means by which the end use will be implemented.
Enforce compliance with the Lakeville Gravel Mining Ordinance.
Goal: Natural resources shall be integrated with Lakeville’s park, trail, and open spaces.
Policies:
Establish greenway corridors throughout Lakeville as a means to protect
environmentally sensitive areas, provide natural open space, define neighborhoods,
provide links between natural open spaces and environmentally sensitive areas for
wildlife corridors and increase storm water infiltration.
Acquire environmentally sensitive areas for Lakeville parks, greenways, or open spaces
and limit new development and the expansion of existing activities where potentially
significant environmental damage may result.
GROWTH MANAGEMENT
Managing the rate of growth has been a priority for Lakeville since the mid-1990s Strategic
Growth Management plan to anticipate the impact of continued development on public
services, utilities, streets, and City finance. The following goals and policies are provided to
define and guide Lakeville’s continued growth management efforts.
Goal: Land use development shall be managed in a manner that is fiscally responsible to
maintain Lakeville’s current financial position and favorable local tax rate.
Policies:
Relate land use development in Lakeville to community priorities, transportation
capacities, availability of utility infrastructure, and ability to provide high quality City
services such as parks, trails, police, and fire protection, etc.
Promote development that expands Lakeville’s service delivery areas with infill
development and contiguous MUSA expansion maximizing utilization of in-place utility
and service investment.
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Expand the boundaries of the MUSA in stages according to the following criteria:
1. Expansion of the MUSA shall be in accordance with the establishment of a MUSA
Staging Plan.
2. The City Council studies and determines that buildable land supply within the
current MUSA is reduced to acreage that can be fully developed within
approximately five years or less in accordance with established growth
management objectives.
3. The developer and/or benefiting property owners are to assume costs associated
with extending utilities.
Allow development consistent with Lakeville’s established residential development
target of not more than 450 to 550 single family dwelling units per year.
Apply Lakeville’s development policies and regulations consistently and uniformly.
Amend established land use designations and related zoning classifications that reflect
Lakeville’s long-term interest only when such action is consistent with the goals and
policies of the 2018 Lakeville Comprehensive Plan.
Limit subdivisions in rural areas of Lakeville until expansion of the MUSA so as to not
create land use conflicts for future urbanization.
Implement the Capital Improvement Plan (CIP) to allow the City to properly finance
public improvements and required infrastructure improvements associated with new
development.
Goal: Attracting, retaining, and expanding business and industry is a priority for providing
employment opportunities and diversification of Lakeville’s tax base.
Promote economic development by establishing goals and monitoring performance to
expand commercial and industrial uses.
Streamline the development review process for proposed commercial and industrial
developments.
Promote development of high architectural quality in order to enhance Lakeville’s
image, promote building durability, increase energy efficiency, and expand the local tax
base.
Support tourism and City promotion through the activities of business organizations
such as visitors bureaus and chambers of commerce.
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LAND USE
The land use goals and policies create a foundation for defining the character and intensity of
land use in Lakeville. The land use related goals and policies apply both to existing land use
patterns and future development. The following goals and policies serve as a reference for land
use planning decisions.
Land Use Generally
Goal: A cohesive land use pattern is to be developed that insures compatibility and functional
relationships among activities.
Analyze All development proposals on an individual basis from a physical, economic, and
social standpoint to determine the most appropriate uses within Lakeville.
Require new development in Lakeville to adhere to the highest planning, design, and
construction standards implemented through establishment of the City’s development
regulations.
Enhance the attractiveness of Lakeville through a continuing program of high visibility
corridor enhancements, civic beautification, tree planting, maintenance of homes,
businesses, industries, and streets, requiring high quality building materials and site
landscaping and other measures that will promote an aesthetically pleasing living and
working environment.
Design and orient buildings to promote opportunities for active living, including active
transportation especially within designated regional transit corridors.
Encourage walkable site design for housing and commercial land uses to increase
financial and environmental sustainability.
Identify opportunities for development nodes along the Red Line and Orange Line
transit corridors to create complementary land uses supportive of investments in transit
services.
Provide land use transitions and proper buffering between distinctly different types of
land uses.
Consider requested land use changes in relation to adjoining land uses and site access.
Define adequate lot sizes and lot requirements to be required for all types of
development.
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Goal: The character of individual neighborhoods is to be maintained and improved where
possible.
Renewal, replacement, and redevelopment of substandard, incompatible or non-
conforming development shall be accomplished through public action and private
means.
Regulate incompatible land uses to minimize compatibility issues through the use of
natural and man-made physical barriers (i.e., topography, drainageways, transportation
routes, etc.), distances, landscape screening, and/or proper physical orientation of lots
and buildings.
Protect residential development from adverse environmental impacts, including noise,
air, and visual pollution and prohibit new residential development in areas where noise
and/or air pollution exceed accepted standards and the negative impacts are not
correctable by construction, site planning or other techniques.
Utilize public improvements as a means for continuing civic beautification,
strengthening neighborhood character, and stimulating investment in private property.
Rural Land Uses
Goal: Existing rural land uses and farming operations are to be preserved as a growth
management strategy.
Policies:
Stage growth to prevent premature intrusion of urban development into rural areas
outside of the MUSA within Lakeville to maintain existing active farming operations.
Prohibit the division of land in agricultural areas if such action will infringe upon the
maintenance of existing farming activities within rural areas of Lakeville.
Observe agricultural conservation practices that prevent erosion and preserve natural
resources.
Confine the keeping of the present levels of farm animals to rural service areas of
Lakeville or farming operations already established to avoid potential adverse effects on
adjoining non-agricultural uses.
Create opportunities for local food and fiber production and access.
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Residential Land Uses and Housing
Goal: Residential uses shall be developed in a manner consistent with Lakeville’s priorities,
compatible with surrounding development, and responsive to market needs.
Policies:
Ensure that all new housing adheres to the highest possible standards of planning,
design, and construction to ensure livable, sustainable housing choices within Lakeville.
Encourage single family dwellings as the primary form of residential development in
Lakeville.
Avoid concentrating medium and high density residential dwelling types within specific
areas of Lakeville.
Encourage use of innovative development techniques and housing designs in Lakeville
that conserve land and increase efficiency.
Locate multiple family housing with adequate access to major roadways and around
areas targeted for business and industrial development to provide market and labor
support.
Goal: Life cycle and work force housing shall be provided within Lakeville in response to the
community’s changing demographic profile and economic development goals.
Preserve existing housing stock through inspection, code enforcement, housing
maintenance codes, and other efforts.
Rehabilitate, or where necessary, redevelop substandard dwellings by undertaking
action through private means and/or public action as appropriate.
Review housing standards applicable to townhouse and multiple family dwelling units to
ensure adequate living area, sound proofing, increased energy conservation, provisions
for social and recreational facilities, and landscaping.
Encourage development and preservation of owner-occupied work force housing that is
not concentrated within a single project area.
Continue efforts with the Dakota County CDA in providing life-cycle and work force
housing within Lakeville.
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Establish policies and administrative mechanisms to facilitate the development housing
in market segments not adequately developed, including work force housing.
Use Federal, State, and regional funding sources and financing together with
development tools allowed by State law to facilitate development of new life-cycle and
work force housing.
Commercial Land Uses
Goal: Commercial uses shall be developed concentrated market centers oriented to major
transportation corridors and intersections to promote sustainable business activity responsive
to Lakeville’s needs and surrounding market area.
Policies:
Evaluate the physical implication of commercial land uses located in areas of high
accessibility with consideration related to traffic generation, site access, sewer and
water demands, environmental issues, and compatibility with neighboring land uses.
Coordinate new development and redevelopment efforts with adjoining commercial
properties to create site designs that promote attractive shopping, dining and
entertainment environments, easy accessibility, and a high level of business
interchange.
Limit the expansion of existing neighborhood commercial sites except to those
transitional uses that provide for compatible land use arrangements.
Identify locations for development of commercial office parks within Lakeville to provide
for expanded local employment opportunities and diversified tax base.
Communicate with local businesses to gain an understanding of the changing needs of
the commercial market.
Promote Airlake Airport to attract high quality commercial, office, and industrial
development to Lakeville that may have air service needs.
Goal: A cohesive and unified identity for Lakeville’s commercial areas shall be created to make
attractive gateways and focal points within the community.
Policies:
Encourage high quality commercial development through architectural standards,
landscaping, and site design within commercial development nodes.
12
Allow signage of commercial properties to facilitate business identification while
avoiding over-intensification causing a negative aesthetic or potential driver distraction.
Regulate outdoor storage and sales associated with commercial uses to ensure
attractive site maintenance.
Promote joint utilization of parking and other related supportive services within
commercial districts to meet the demand generated by the uses.
Design and maintain commercial buildings to be resistant to personal and property
crime.
Encourage redevelopment of commercial sites that display building deterioration,
obsolete site design, land use compatibility issues, and under-utilization of the site.
Central Business District
Goal: Downtown Lakeville is to be a vibrant, historic center for the community that includes a
broad range of mixed land uses arranged in a traditional development pattern characteristic of
the existing area.
Policies:
Promote a broad range of land uses within Downtown Lakeville including residential,
retail, service, office, entertainment, performing arts, and civic uses.
Connect Downtown Lakeville to other neighborhoods and commercial locations within
the City to enhance the attraction of the area as a destination and amenity within the
community.
Promote a variety of building designs, but establish guidelines that require continuity
and integration with established building architecture, materials and streetscape
treatments.
Require site design that establishes building orientations towards focal points such as
street intersections, open spaces, and view sheds offered in Downtown Lakeville.
Utilize common elements within Downtown Lakeville such as public structures,
streetscape, open spaces, plazas, sidewalks, and trails to establish a strong identity for
the area.
Integrate commercial land uses through site design, building orientation, pedestrian
connections and shared parking to establish a customer friendly shopping environment
and to promote a high level of business interchange within Downtown Lakeville.
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Encourage redevelopment of incompatible and/or functionally obsolete buildings in
Downtown Lakeville with appropriate scale and architecture.
Industrial Land Use
Goal: Areas for development of industrial uses in Lakeville shall be identified that allow for a
range of industrial activities compatible with adjoining land uses.
Implement the Lakeville Strategic Plan for Economic Development.
Communicate with Lakeville businesses to stay informed of their changing needs and
facilitate retention and in-place expansion of existing industries.
Identify sites for industrial expansion with consideration as to the physical implications
of industrial park planning for traffic generation, rail and airport use, sewer and water
demands, and environmental issues.
Cluster industry to achieve better energy, economic, and environmental outcomes.
Define distinct areas for varying types of industrial activities and establish respective
standards governing development quality.
Provide isolation from less intense land uses to allow industries to operate without
causing compatibility issues with adjacent properties.
Goal: Orderly expansion of Lakeville’s industrial parks shall be pursued through the logical
extension of utilities to ensure local employment opportunities and a diverse tax base.
Require high quality industrial construction to insure building durability and an
aesthetically attractive appearance with consideration for site design flexibility to
accommodate in-place industrial expansion and building reuse.
Encourage infill development that maximizes the return on existing investments in
public facilities, infrastructure, and services.
Promote site maintenance through code enforcement for a positive community image.
Encourage redevelopment of industrial sites that exhibit building deterioration, obsolete
site design, environmental concerns, and/or land use compatibility issues.
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Transportation
Goal: Transportation planning shall be addressed for all modes and related facilities as an
integrated system.
Policies:
Design transportation facilities to conserve natural resources and minimize the need for
ongoing public investment.
Provide access to housing, employment centers, schools, parks, and other community
facilities through integrated transportation systems including streets, sidewalks, and
trails.
Coordinate transportation planning and implementation with MN/DoT, Metropolitan
Council, Dakota County, adjacent counties, cities, and townships, as well as affected
jurisdictions such as school districts.
Support planning and investment in extension of the Red Line and Orange Line transit
corridors to serve existing and future residential, commercial, industrial and land uses,
and areas identified as opportunities for Transit Oriented Development designated by
the 2040 Land Use Plan.
Develop practices that improve pedestrian and bicycle circulation between
neighborhoods and activity nodes, as well as transit locations and regional trail
corridors.
Improve multimodal intersections, alternative freight routes, interchanges, and
opportunities to enhance local and regional economic competitiveness.
Goal: The street system shall be planned, designed, and constructed according to the highest
standards in consideration of land use and efficient local and regional transportation.
Policies:
Implement a functional classification system for the design and construction of streets
within Lakeville that is coordinated with MNDoT, Metropolitan Council, Dakota County,
and adjacent counties, cities, and townships.
Plan for anticipated increases in traffic volumes and corresponding roadway
improvements by analyzing existing right-of-way widths, accessibility, speed, surfacing,
sizing, and maintenance requirements of existing roadways and those in areas of new
development.
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Construct new streets and upgrade existing streets in compliance with MN/DoT
standard specifications for design and consistent with complete streets principles that
include facilities for non-automobile users.
Consider provision of minor collector streets within large residential subdivisions to
channel traffic out of the subdivision and onto the City’s major collector and arterial
street system.
Restrict vehicular access onto all types of arterials to ensure adequate distance between
intersections and effective utilization of appropriate traffic control methods and
devices.
Prohibit parking on arterial streets and limit on-street parking on other streets where
conflicts with moving traffic or creates hazards may occur.
Classify all residential streets as low volume carriers designed to prevent penetration by
through traffic and to properly direct traffic to major collector or arterial streets.
Provide connections between neighborhoods to encourage interaction, distribute traffic
and ensure access.
Require proper visibility, design and control of all intersections to promote vehicle and
pedestrian safety.
Implement a uniform sign maintenance policy regarding streets signs that eliminates
unnecessary signs and replaces outdated, inappropriate, and confusing public signs.
Improve the efficiency and quality of street lighting, traffic signals, and outdoor public
lighting.
Act to plan, design, and develop a street system in those areas where incomplete street
facilities exist that reflects the highest standards and relates land use to transportation
needs.
CITY OF LAKEVILLE
PLANNING COMMISSION WORK SESSION MINUTES
November 16, 2017
Vice Chair Kaluza called the work session to order at 6:25 p.m.
Members Present: Vice Chair Kaluza, Karl Drotning, Jason Kelvie, Brooks Lillehei
Members Absent: Chair Jason Swenson, Scott Einck, Paul Reuvers
Staff Present: Planning Director Daryl Morey, Associate Planner Kris Jenson, Planning
Consultant Daniel Licht
Comprehensive Plan Discussion
Mr. Morey introduced this agenda item and briefly outlined the upcoming work session
schedule for November and December.
Planning Consultant Daniel Licht presented the agenda item. He referred to his
November 9th memo regarding proposed policy planning provisions of the 2018
Comprehensive Plan that was prepared for the work session. He stated that the goals
and policies have been streamlined to reduce redundancies and will be incorporated as
appropriate into the individual district sections for ease of reference. He then
summarized the goals and policies listed in the draft document included with his
November 9th memo.
Commissioner Drotning asked about the GreenStep Cities program. Mr. Morey stated
that is a program the City enrolled in at the City Council’s direction. Mr. Licht stated that
GreenStep Cities is a Minnesota Pollution Control Agency sustainability program
requiring the implementation of best management practices.
Commissioner Lillehei asked for clarification on the use of the policies stated in the
Comprehensive Plan as it relates to development projects. Staff and Commissioner
Drotning provided an explanation.
Commissioner Drotning suggested wording modifications to the Natural Resources,
Growth Management, and Land Use sections within the draft document to provide
clarification for the proposed policies.
Mr. Morey and Mr. Licht reiterated the next steps in the 2018 Comprehensive Plan
process including review and discussion of the Land Use and MUSA maps and specific
district provisions.
Planning Commission Work Session Minutes – November 16, 2017 Page 2
The work session adjourned at 7:20 p.m.
Respectfully submitted,
Daryl Morey, Planning Director