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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: 7 December2017
RE: Lakeville – 2018 Comprehensive Plan; Draft 2040 MUSA/Land Use Plan
TPC FILE: 135.01
BACKGROUND
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 to be used 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 Land Use Plan section of 2018 Comprehensive Plan 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.
Exhibits:
2040 Land Use Plan Designations
Land use concept (2008 Comprehensive Plan)
Metropolitan Council Density of Development reference material (16 pages)
Draft 2040 MUSA Staging Plan
Draft 2040 Land Use Plan
Draft 2040 Land Use Plan District Maps (6 pages)
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ANALYSIS
Projected Growth. 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
2040 MUSA. City staff has prepared a draft 2040 MUSA Staging Plan based on the current
buildout of the Staged MUSA Expansion Areas and ultimate Sewer Plan for extension of trunk
services. No timeframe has been assigned for the expansion of the MUSA into Expansion Areas
A or B. These designations will depend on establishment of the 2040 Land Use Plan and
projected absorption.
The current Urban Reserve designated by the 2008 Comprehensive Plan encompassing
the Farmington Interceptor sewershed is planned to be staged for extension of utilities
and urban development. The area is divided between two sewer subdistricts with
sewer extension to move from the southeast corner of the area to the north and west.
The south subdistrict will be included in the MUSA to meet current demands for
developable land. The north subdistrict will be designated as MUSA Expansion Area A
for future urban expansion. The timing for expansion of the MUSA to include this area
should be contingent in part upon Red Line transit improvements with the Cedar
Avenue corridor to accommodate planned residential density and transit oriented
development.
Areas south of 170th Street and east of Pilot Knob Road will remain in MUSA Expansion
Area A. There is opportunity to extract aggregate resources from this area as part of a
master plan similar to that prepared for Spirit of Brandtjen Farm prior to inclusion of the
area within the MUSA for development.
The area east of Dodd Boulevard adjacent to 185th Street will be designated as MUSA
Expansion Area A. Sewer service for this area must be extended west through the
Avonlea development before the MUSA is expanded.
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The MUSA has been expanded to include an additional 160 acres south of CSAH 70
(south of Lakeville South High School) to allow for continued industrial development.
Trunk sewer will continue to be extended west towards the I-35 corridor and expansion
of the MUSA can be advanced for economic development purposes if market conditions
warrant.
The area west of I-35 south of 185th Street (CSAH 60) that is currently designated as
Permanent Rural by the 2008 Comprehensive Plan will be changed to Urban Reserve.
This change reflects the feasibility of extending sewer utilities to the area in the future
and anticipates that demand for developable land after 2040 may create the
opportunity for urban uses in this area.
Northwest Lakeville, which is currently designated as Permanent Rural by the 2008
Comprehensive Plan, is designated as Rural Service Area on the 2040 MUSA Staging Plan
map. Due to the existing development pattern and natural conditions in the area,
extension of sewer utilities to this area is not practical generally. The revision of the
designation to Rural Service Area removes the word “permanent” as there have been
approved development proposals at the periphery of the area that include urban
services.
Land Use Designations. The tables attached to this memorandum describe the various land
uses shown on the draft 2040 Land Use Plan. These descriptions have been carried forward
from the 2030 Land Use Plan for the most part. New to the 2040 Land Use Plan is definition of
a Transit Oriented Development (TOD) land use. The TOD land use is intended to implement
the Metropolitan Council’s objectives for development along the Cedar Avenue corridor with a
mix of high density residential and commercial land use in support of the planned Red Line Bus
Rapid Transit services. The form of development in this area is to be oriented to the transit
corridor and transit facilities to promote access options other than passenger vehicles.
Examples of Transit Oriented Development (along with other representative forms of density)
prepared by Metropolitan Council is attached for reference.
2040 Land Use Plan. The 2040 Land Use Plan is required to maintain a minimum residential
density of three dwelling units per acre within the MUSA, including a minimum eight units per
acre within the Cedar Avenue Red Line transit corridor. The most significant change is
designation of land uses for the area of the Farmington Interceptor previously defined by the
2008 Comprehensive Plan as a Special Plan Area. The goal in reviewing the Land Use Plan is to
designate density required by Metropolitan Council for the Cedar Avenue Red Line corridor and
provide opportunities for higher density housing adjacent to commercial uses within the I-35
corridor as a means of lowering guided densities in other areas of Lakeville. The following
locally defined principles guide development of the 2040 Land Use Plan:
Encourage single family dwellings as the primary form of residential development in
Lakeville.
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Avoid concentrating medium and high density residential dwelling types within specific
areas of Lakeville.
Locate multiple family housing with adequate access to major roadways and near areas
targeted for business and industrial development to provide market and labor support.
Commercial uses shall be developed with concentrated market centers oriented to
major transportation corridors and intersections to promote sustainable business
activity responsive to Lakeville’s needs and surrounding market area.
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.
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.
The table below summarizes the changes from the 2030 Land Use Plan to the draft 2040 Land
Use Plan. The changes below summarize only those proposed modifications of the Land Use
Plan for undeveloped properties. City staff is reviewing the 2030 Land Use Plan for existing
developed parcels to adjust the land uses designated on the 2040 Land Use Plan to reflect the
actual land use.
Draft 2040 Land Use Plan
Proposed Land Use Changes
Subtract Add Net Change
Rural (1 du./10ac.)
Low Density Residential (less than 3 du./ac.) 23 647 +624
Low/Medium Density Residential (3-5 du./ac.) 411 671 +174
Medium Density Residential (4-7 du./ac.) 209 27 -182
Medium/High Density Residential (5-9 du./ac.) 30 317 +287
High Density Residential (+9 du./ac.) 0 86 +86
Office Residential Transition 6 0 -6
Transit Oriented Development 0 140 +140
Commercial 63 8 -55
Office Park 288 3 -285
Warehouse/Light Industrial 0 265 +265
Parks 0 10 +10
Special Plan Area 1,130 0 -1,130
Restricted Development 3 0 -3
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Shown on the draft 2040 Land Use Plan is a Transit Oriented Corridor extending one-half mile
east/west of Cedar Avenue from the Dodd Boulevard/Cedar Avenue intersection to the City’s
south boundary. Metropolitan Council expects residential development within this corridor to
be at least eight dwelling units per acre. The designated corridor includes existing developed
areas surrounding Dodd Boulevard/Cedar Avenue on the north end and existing industrial uses
on the south end. The inclusion of existing commercial, townhouses, apartments, and transit
facilities on the north portion of the proposed corridor contributes to the City meeting the
density objectives established by Metropolitan Council. Inclusion of the industrial uses at CSAH
70/Cedar Avenue is a work force destination that ought to be made accessible to transit to
assist area businesses with employment attraction. Other significant changes to the Land Use
Plan are described below:
The area east of Dodd Boulevard and west of the Cedar Avenue Red Line Transit
Corridor is to be changed from Low-to-Medium Density Residential Development to Low
Density Residential Development to encourage construction of single family
neighborhoods within the central area of Lakeville.
The Special Plan Area representing the Farmington Interceptor sewershed and a large
portion of the Cedar Avenue Red Line Transit Corridor is to be designated for TOD,
Medium-to-High Density Residential, and Low-to-Medium Density Residential land uses
consistent with the density requirements for this corridor. Areas outside of the ½ mile
corridor on either side of Cedar Avenue are designated for Low Density Residential
Development.
Parcels at Kenrick Avenue/195th Street (east of I-35), Keokuk Avenue/205th Street, and
Keokuk Avenue/210th Street (west of I-35) have been changed to High Density
Residential uses. The location of these parcels within the I-35 freeway corridor and
development of high density residential land uses will encourage utilization of future
transit services, provide increased market support for existing/planned commercial
uses, and provide opportunities for workforce housing in proximity to employers.
The property located on Kenrick Avenue north of Timbercrest at Lakeville is changed
from Commercial to High Density Residential land use. Wetlands and the need to
extend Kenrick Avenue though this site limits opportunities for commercial
development.
South of CSAH 70, there are 265 acres of land guided for Office Park uses that are
proposed to be changed to Warehouse/Light Industrial. This change reflects likely
demand for continued light industrial development, as well as the existing land uses at
Kenrick Avenue. Parcels directly adjacent to CSAH 70 and I-35 (including the area
immediately south of Lakeville South High School) are proposed to remain guided Office
Park. The Comprehensive Plan text can acknowledge that the City needs to monitor
demand for office park and light industrial uses going forward as part of the Strategic
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Plan for Economic Development to determine appropriate boundary between these
land uses in the future.
Parcels surrounding the CSAH 50/Ipava Avenue intersection have been revised to be
more consistent with the character of the area and remove planned commercial and
office park uses.
CONCLUSION
The City Council, Planning Commission, and Economic Development Commission will meet in a
joint work session on 11 December 2017 to review the draft MUSA Staging Plan and draft 2040
Land Use Plan. City staff will review the requirements of Thrive MSP2040 and the proposed
changes from the 2030 Comprehensive Plan at the work session. We are requesting direction
from the advisory commissions and City Council on the draft MUSA Staging Plan and 2040 Land
Use Plan as to the acceptability of the proposed changes or additional modifications that may
be considered. City staff will utilize this information in further development of the
Comprehensive Plan in completing the land use, as well as transportation and utility system
elements of the planning process.
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
2040 Land Use Plan - Residential Designations
Land Use Density Allowed Uses
Low Density Residential Less than 3.0 du/ac. Single family dwellings.
Low to Medium Density
Residential
3.0 to 5.0 du/ac. Single family, two family, and
detached townhouse dwellings.
Medium Density
Residential
4.0 to 7.0 du/ac. Two family dwellings, detached
townhouse and quad or row
townhouse dwelling units.
Medium to High Density
Residential
5.0 to 9.0 du/ac. Quad, row, or back-to-back
townhouse dwellings.
High Density
Residential
More than 9.0 du/ac. Back-to-back townhouse and
multiple family dwellings
Manufactured
Home Park
4.0 to 7.0 du/ac. Manufactured home dwellings unit
2040 Land Use Plan – Commercial Designations
Land Use Anticipated Uses
Office/Residential Transition Neighborhood oriented retail or service businesses, low
intensity offices or conditional allowance of medium to
high density residential uses at up to 26 du/ac.
Commercial General retail, service, or office business with community
or regional market areas.
Office Park Professional office uses with limited retail sales, services,
warehousing, manufacturing, and assembly uses.
2040 Land Use Plan – Industrial Designations
Land Use Anticipated Uses
Warehousing/Light Industrial Professional offices, distribution facilities, warehousing,
assembly of manufactured goods.
Industrial Professional offices, distribution facilities, warehousing,
assembly, and manufacture of goods.
2040 Land Use Plan – Special Designations
Land Use Anticipated Uses
Transit Oriented Development Mix of retail, service, or office commercial uses, high
density residential dwellings at up to 26 du./ac., and
public and quasi-public uses with land forms oriented to
non-vehicular travel and accessible to public transit
facilities.
Public and Quasi Public City and other government facilities, schools, religious
institutions.
Parks City parks, greenway corridors, and open space.
Restricted Development Parcels encumbered by wetlands, wetland buffers, and
stormwater basins.
Airport Airlake Airport
Density of
Development
Twin Cities Metropolitan Area Examples
Introduction
•Visualizing Housing Density
This presentation is designed to help visualize housing unit density in a variety of urban and suburban settings. Density is an important characteristic in relationship between land use and transportation, particularly in supporting successful transit service. However, density has many forms and applications and developments of the same density can have a very different look and feel. Density also has numerous definitions and methods of measurement.This presentation defines density by how many housing units are in a development designated for housing, dwelling units per acre (du/acre).In some cases, it is the parcels that comprise the subdivision. In others, it is area included in the development project or neighborhood block.
Key Points
•Density is a number of units in a given land area (project area, subdivision, parcel).In the residential developments used the land area includes all the area of the legal parcel or parcels.The maps show the land area definition for each project highlighted.
•In mixed use projects, density is the number of housing units divided by the land area of the mixed-use development (that includes area used for non-residential uses such as office or retail space).
•For questions about this presentation, contact John Kari at john.kari@metc.state.mn.us
Density of
Development
Suburban 3.3 units per acre Density of
Development
Suburban 5 units per acreDensity of
Development
Suburban 7 units per acreDensity of
Development
Suburban 10 units per acreDensity of
Development
Suburban 15 units per acreDensity of
Development
Suburban 18 units per acreDensity of
Development
Suburban 25 units per acreDensity of
Development
Suburban 28 units per acre
mixed use
Density of
Development
Suburban 28 units per acre
mixed use
Density of
Development
Suburban 32 units per acre (1)
mixed use
Density of
Development
Suburban 32 units per acre (2)
mixed use
2010 Land Use
Density of
Development
Suburban 46 units per acre
Mixed Use
Density of
Development
Suburban 64 units per acreDensity of
Development
Suburban 90 units per acreDensity of
Development
§¨¦35
210TH ST W
215TH ST W CEDAR AVEDODD BLVDIPAVA AVE162ND ST W
HIGHVIEW AVEHOLYOKE AVE185TH ST W
KEN
W
OOD TRL FLAGSTAFF AVEPILOT KNOB RD170TH ST WDODD BLVDDODD BLVD175TH ST W
Expansion Area "A" (Not Before 20XX)
Expansion Area "B" (Not Before 20XX)
Urban Reser ve
Rural Ser vice Area
0 1 20.5 Miles
²
CITY OF LAKEVILLE
2018 Comprehensive Plan
2040 MUSA Staging Pla n
Source: City of Lakeville
§¨¦35
210TH ST W
215TH ST W CEDAR AVEDODD BLVDIPAVA AVE162ND ST W
HIGHVIEW AVEHOLYOKE AVE185TH ST W
KEN
W
OOD TRL FLAGSTAFF AVEPILOT KNOB RD170TH ST WDODD BLVDDODD BLVD175TH ST W
4
1 2 3
5
6
7
Rural Density ResidentialLow Density ResidentialLow/Medium Density ResidentialMedium Density ResidentialMedium/High Density ResidentialHigh Density ResidentialManufactured HousingOffice/Residential TransitionTransit Oriented DevelopmentCommercialOffice ParkWarehouse/Light IndustrialAirportIndustrialPublic and Quasi-PublicParksRestricted DevelopmentWaterTransit Oriented Corridor
0 1 20.5 Miles
²
CITY OF LAKEVILLE
2018 Comprehensive Land Use Plan
2040 Land Use Plan
Source: City of Lakeville
Draf t 2040 Land Use Plan
Distric t 1
Connelly MHPParcels: 1Acres: 5.78Proposed: HDRCurrent: C
Fortune RealtyParcels: 1Acres: 36.16Proposed: HDRCurrent: C I-35KENWOODTRL(CSAH50)
185TH ST 185TH ST
1 6 2 N D S T (CSAH 46)
2040 Land Use Plan DRAFT
Rural Density Residential (1 per 10 ac.)
Low Density Residential (>3 units/acre)
Low/Medium Density Residential (3-5 units/acre)
Medium Density Residential (4-7 units/acre)
Medium/High Density Residential (5-9 units/acre)
High Density Residential (9 units/acre)
Manufactured Housing
Office/Residential Transition
Transit Oriented Development
Commercial
Office Park
Warehouse/Light Industrial
Industrial
Public and Quasi-Public
Parks
Restricted Development
Airport
Water
Transit Oriented Corridor
D O D D B O U LEV A R D (C SA H 9)160TH ST (CSAH 46)PILOT KNOB ROAD (CSAH 31)170TH ST
179TH STCEDAR AVENUE (CSAH 27)Draf t 2040 Land Use Plan
Distric t 3
Smith/Olson/Apple ValleyParcels: 6Acres: 130.97Proposed: L/MDRCurrent: MDR
Dakota Co. ParksParcels: 1Acres: 4.45Proposed: PCurrent: MDR
2040 Land Use Plan DRAFT
Rural Density Residential (1 per 10 ac.)
Low Density Residential (>3 units/acre)
Low/Medium Density Residential (3-5 units/acre)
Medium Density Residential (4-7 units/acre)
Medium/High Density Residential (5-9 units/acre)
High Density Residential (9+ units/acre)
Manufactured Housing
Office/Residential Transition
Transit Oriented Development
Commercial
Office Park
Warehouse/Light Industrial
Industrial
Public and Quasi-Public
Parks
Restricted Development
Airport
Water
Transit Oriented Corridor
Friedges Land.& RentalParcels: 2Acres: 10.98Proposed: L/MDRCurrent: C
WarwegParcels: 1Acres: 16.05Proposed: L/MDRCurrent: L/MDR MDR
City of LakevilleParcels: 1Acres: 6.06Proposed: PCurrent: LDR
WarwegParcels: 1Acres: 20.8Proposed: MDRCurrent: C & OP
Warweg /MilanParcels: 2Acres: 5.9Proposed: MDRCurrent: OP
Warweg /PublicParcels: 5Acres: 8.26Proposed: L/MDRCurrent: M/HDRAshbury LPParcels: 1Acres: 22Proposed: HDRCurrent: M/HDR
Draf t 2040 Land Use Plan
District 4
2040 Land Use Plan DRAFT
Rural Density Residential (1 per 10 ac.)
Low Density Residential (>3 units/acre)
Low/Medium Density Residential (3-5 units/acre)
Medium Density Residential (4-7 units/acre)
Medium/High Density Residential (5-9 units/acre)
High Density Residential (+9 units/acre)
Manufactured Housing
Office/Residential Transition
Transit Oriented Development
Commercial
Office Park
Warehouse/Light Industrial
Industrial
Public and Quasi-Public
Parks
Restricted Development
Airport
Water
Transit Oriented Corridor
0 - 1/4 Mile Eof Cedar AveParcels: 11Acres: 190Proposed: M/HDRCurrent: SPA
S Dodd Blvd/Highview AveParcels: 40Acres: 690Proposed: LDRCurrent: L/MDR SPA
1/4 - 1/2 Mile Wof Cedar AveParcels: 9Acres: 230Proposed: L/MDRCurrent: MDR, SPA
0 - 1/4 Mile Wof Cedar AveParcels: 6Acres: 105Proposed: M/HDRCurrent: SPA
1/4 - 1/2 Mile Eof Cedar AveParcels: 11Acres: 275Proposed: L/MDRCurrent: SPA/LDR
Transit OrientedDistrictParcels: 10Acres: 140Proposed: TODCurrent: SPA
Boatman/Song Prop.Parcels: 3Acres: 22Proposed: M/HDRCurrent: L/MDR, MDR, O/RT
CEDAR AVE (CSAH 23)D O D D B L V D (C S H A 9 )
1 7 9 TH ST
202ND ST
(CSAH 50)
190TH STHIGHVIEW AVEDraf t 2040 Land Use Plan
Distric t 5
2040 Land Use Plan DRAFT
Rural Density Residential (1 per 10 ac.)
Low Density Residential (>3 units/acre)
Low/Medium Density Residential (3-5 units/acre)
Medium Density Residential (4-7 units/acre)
Medium/High Density Residential (5-9 units/acre)
High Density Residential (+9 units/acre)
Manufactured Housing
Transit Oriented Development
Office/Residential Transition
Commercial
Office Park
Warehouse/Light Industrial
Industrial
Public and Quasi-Public
Parks
Restricted Development
Airport
Water
Transit Oriented Corridor
Powell & RypkemaDev. propertyParcels: 3Acres: 21.7Proposed: HDRCurrent: MDR ImageTrendParcels: 1Acres: 3.39Proposed: OPCurrent: RD
Former LandgroPropertyParcels: 1Acres: 6.6Proposed: CCurrent: OP
Kenrick Ave/215th StParcels: 15Acres: 265Proposed: W/LICurrent: OP
2018 Draf t Land Use Plan
Distric t 6
215TH ST (CSAH 70)DODDBLVD(CSAH9)I-35KENRICKAVE210TH ST 210TH ST
2040 Land Use Plan DRAFT
Rural Density Residential (1 per 10 ac.)
Low Density Residential (>3 units/acre)
Low/Medium Density Residential (3-5 units/acre)
Medium Density Residential (4-7 units/acre)
Medium/High Density Residential (5-9 units/acre)
High Density Residential (9+ units/acre)
Manufactured Housing
Office/Residential Transition
Transit Oriented Development
Commercial
Office Park
Warehouse/Light Industrial
Industrial
Public and Quasi-Public
Parks
Restricted Development
Airport
Water
Transit Oriented Corridor
185th StCorridorParcels: 6Acres: 92Proposed: L/MDRCurrent: RDR
Dale PropertyParcels: 1Acres: 41.2Proposed: HDRCurrent: M/HDR
Blanchard/Korsa PropertiesParcels: 3Acres: 30Proposed: HDRCurrent: RDR
LenertzParcels: 1Acres: 20Proposed: M/HDRCurrent: RDR I-35KENRICKAVE210TH ST
205TH ST
185TH ST
215TH STJUSICIAL RDDraft 2040
Land Use
Plan
Distric t 7
2040 Land Use Plan DRAFT
Rural Density Residential (1 per 10 ac.)
Low Density Residential (>3 units/acre)
Low/Medium Density Residential (3-5 units/acre)
Medium Density Residential (4-7 units/acre)
Medium/High Density Residential (5-9 units/acre)
High Density Residential (+9 units/acre)
Manufactured Housing
Office/Residential Transition
Transit Oriented Development
Commercial
Office Park
Warehouse/Light Industrial
Industrial
Public and Quasi-Public
Parks
Restricted Development
Airport
Water
Transit Oriented Corridor