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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 April 2018
RE: Lakeville – 2018 Comprehensive Plan; Draft 2040 MUSA/Land Use Plan
TPC FILE: 135.01
BACKGROUND
The City of Lakeville is in the process of updating its Comprehensive Plan in accordance with
Minnesota Statues 473.864, Subd. 2. 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. The process to date has included discussion by the
City Council and advisory commissions regarding the Thrive MSP 2040 regional plan adopted by
Metropolitan Council, community priorities, goals and policies and draft Municipal Urban
Service Area Staging Plans and 2040 Land Use Plans.
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. The draft 2040 Land Use Plan was prepared
following a series of planning district meetings and City Council and advisory commission work
sessions. A second series of planning district meetings were held in March 2018 to receive input
and comments as to the draft 2040 Land Use Plan.
Comments received as part of this second series of planning district meetings are outlined
herein. City staff is providing a recommendation as to any modification of the draft 2040 Land
Use Plan that should be considered by the City Council and advisory commissions. Upon
direction from City officials regarding these final changes to the draft 2040 Land Use Plan, City
staff will finalize the draft 2018 Lakeville Comprehensive Plan update for review by City officials
and surrounding affected jurisdictions prior to formal adoption of the final document.
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Exhibits:
▪ 2040 Land Use Plan Designations
▪ Draft 2040 Land Use Plan District Maps (7 pages)
▪ Draft 2040 MUSA Staging Plan
▪ Draft 2040 Land Use Plan
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 t o 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
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. A new land use category for the 2040 Land Use
Plan is Corridor Mixed Use (CMU). The CMU land use is intended to implement the
Metropolitan Council’s objectives for development along Cedar Avenue or other regional
transportation corridors with a mix of high density residential and commercial land use. 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.
Planning District Comments. The following comments were received during the second series
of Planning District meetings regarding the draft 2040 MUSA Staging Plan and 2040 Land Use
Plan applicable to specific properties:
District 1
1. Fransdal:
o Request: The property owner is requesting the 9.5 acre property surrounding
the 2 acre parcel on which their home is located be brought into the MUSA and
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guided for Low Density Residential Development to allow possible
redevelopment of their entire property.
o Comment: The property is located within the Rural Service Area west of Klamath
Trail and guided for Rural Density Development. The Engineering Division
indicates that trunk sewer to allow for subdivision of the property is not
available in the area and not planned to be extended due to the rural character
and existing division of properties in this area. If there is a need for sewer service
in the event the existing septic system fails, the existing home is within the
MUSA and could be connected to sewer serving the urban single family lots to
the east.
o Recommendation: No change.
2. Jackson:
o Request: Modify the draft 2040 MUSA Staging Plan and 2040 Land Use Plan to
bring the property into the MUSA and guide for Low Density Residential Use,
respectively.
o Comment: The property is current within the area guided as Rural Service Area
to which sewer utilities are not planned to be extended. The Engineering Division
states that existing sewer constructed in Linch Path has limited depth sufficient
only to serve the existing house on the property. In the event the existing septic
system in use on the property fails, the option exists to extend sewer service to
the home to prevent environmental contamination. There is not adequate sewer
service ability to allow for additional development of the property.
o Recommendation: No change.
3. Lakeville Commons, LLC (Connelly Manufactured Home Park):
o Request: Maintain the Commercial land use from the 2030 Land Use Plan for
Connelly Manufactured Home Park.
o Comment: The property is guided for High Density residential in the 2040 Land
Use Plan. The property owner has requested that the property continue to be
guided for Commercial to allow maximum flexibility should the property ever be
redeveloped. Land to the north, at the intersection of Kenrick Ave and 167th
Street, is proposed to change from Commercial to Medium/High Density
Residential, given the proximity to the Kenrick Avenue Park and Ride. Should the
property owner wish to redevelop the property as something other than
commercial, a Comprehensive Plan amendment to reflect the specific
development proposal may be considered.
o Recommendation: City staff recommends keeping the property consistent with
the 2030 Land Use Plan.
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District 2
4. Gerk/Exhavarria:
o Request: The property owners request the 2040 Land Use Plan be modified to
change the property guidance from Low Density Residential to a higher density
residential land use category.
o Comment: The areas to the west, south, and east of the properties south of
175th Street are guided for Low Density Residential uses. Properties accessed
from Junelle Path further to the west and abutting the Argonne Village
commercial development were changed to allow High Density and
Low/Medium Density Residential uses. The arrangement of land uses shown on
the draft 2040 Land Use Plan is consistent with the overall concept for
development within Lakeville to have nodes of commercial land use with higher
density residential land uses at their periphery and transitioning to single family
neighborhoods. The property owner may in the future request amendment of
the 2040 Land Use Plan to allow for higher density residential land uses in
consideration of a specific development plan that the Planning Commission and
City Council can consider in context with the character of the area.
o Recommendation: No change.
District 3
5. Olson:
o Request: Maintain designation of the property for Medium Density Residential
uses as guided by the 2030 Land Use Plan.
o Comment: The Olson property and the abutting Smith property to the north and
east were proposed to be guided for Low/Medium Density Residential uses
consistent with the objective of maintaining residential development within the
City to an overall density of as close to 3.0 dwelling units per acre within the
MUSA as possible. However, these properties are separated from areas to the
east and south by DNR tributaries and regional greenway corridors that are
physical barriers preventing neighborhood connections. Existing development to
the north of these properties is Medium/High Density Residential Use. Access to
these areas will be available from the north with limited accesses to Pilot Knob
Road (CSAH 31).
o Recommendation: Modify the draft 2040 Land Use Plan to guide the Olson
property and the abutting Smith property to the north/east that is north/west of
the DNR tributary to maintain designation for Medium Density Residential uses
for the allowance of attached townhomes consistent with the existing
development to the north.
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District 4
6. Warweg/Friedges:
o Request: Administration staff identified that the purchase agreement with
Warweg for expansion of Antlers Park requires that the balance of the Warweg
property in the area be maintained at their current land use designations.
Friedges is requesting that the 2040 Land Use Plan designation for their property
located south of 202nd Street be maintained as Commercial uses as previously
guided.
o Recommendation: Based on the provisions of the Warweg agreement, City staff
recommends the Warweg and Friedges properties remain guided consistent with
the 2030 Land Use Plan.
7. St. John’s Church:
o Request: An undeveloped outlot to the north of the existing church building
and parking area is guided for Public/Quasi-Public use anticipating expansion of
the existing church use. The property owner is requesting the property be
guided for High Density Residential use to allow opportunity for development
of a senior housing facility.
o Comment: The property abuts the rear yards of single family lots to the north,
townhouses to the west and the Highview Hills senior housing facility to the
southwest. Access to the property is via a private drive from Hamburg Avenue.
Subject to availability of sanitary sewer capacity for a senior housing use, the
proposed land use would be compatible with the character of the area and
provide opportunity for more life-cycle housing options.
o Recommendation: Modify the 2040 Land Use Plan to guide the property for
High Density Residential use.
District 5
8. Winkler:
o Request: The property owner requests the 2040 MUSA Staging Plan be
modified to change designation from MUSA Expansion Area A to bring into the
MUSA. The property owner also requests that the land use designation for the
property be changed from Low Density Residential to Office-Residential
Transition to allow for potential development of a medical office building and a
senior housing facility.
o Comment: The property is to be provided sanitary sewer via extension of trunk
collection pipes from the east (see Figure below). Including the property into
the current MUSA would require construction of an interim lift station .
Construction and operation of an interim lift station is inefficient compared
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with orderly expansion of gravity sanitary sewer concurrent with development
in accordance with the City’s established 2030 MUSA Staging Plan. The
requested modification of the 2040 Land Use Plan is also not consistent with
the development concept implemented by the City that retail, service, and
office uses be concentrated in highly intense activity nodes surrounding major
transportation corridors that promote accumulative attraction and business
interchange with additional market support provided by nearby higher density
residential uses.
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o Recommendation: No change to the draft 2040 MUSA Staging Plan and 2040
Land Use Plan.
9. Flickinger:
o Request: Maintain designation of the property for Low/Medium Density
Residential uses as guided by the 2030 Land Use Plan.
o Comment: The City is required to maintain and average net density for
residential uses of at least 3.0 dwelling units per acre within the MUSA. A
fundamental policy for residential development in Lakeville is that single family
dwellings are to be the primary form of housing in the community. Consistent
with this policy, the 2040 Land Use Plan has lowered the guided residential
density in central areas of the City to plan for development of single family
neighborhoods. Opportunities for higher density housing types necessary to
meet the minimum density requirements established by Metropolitan Council
and provide life-cycle and economically attainable housing options are
designated closer to Commercial, Office Park, Warehouse/Light Industrial or
Industrial land uses or major transportation corrid ors. Specific to the property,
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due to access restrictions to Dodd Boulevard and Highview Avenue, lots
subdivided from the property would be accessed through the property to the
south that is guided for low density residential uses.
o Recommendation: No change.
District 6
10. JLG Investments LLC:
o Request: Modify 2040 Land Use Plan to allow for development of a multiple
family use upon the 3.2 acre property.
o Comment: The 2040 Land Use Plan guides the property for Commercial uses
consistent with existing developed properties to the east and west on the north
side of 210th Street. This group of parcels is outside of the primary node of
planned Commercial uses located at the Cedar Avenue/CSAH 50 intersection.
The property abuts existing residential uses to the north. A multiple family use
of the property would provide for an appropriate land use transition to the
industrial uses across 210th Street to the south. Guiding the property and those
to the east as Office-Residential Transition would allow for multiple family
development of the property and allow continuation of the existing office use
of the property to the east.
o Recommendation: Revise the draft 2040 Land Use Plan to guide the property
and the abutting property to the east from Commercial to Office -Residential
Transition.
11. Ruddle/Fleugel:
o Request: The property is divided into areas guided for Office Park and
Warehouse/Light Industrial. There are 17 acres of the property guided for
Office Park uses that are south of a DNR tributary and separated from the
balance of the area guided for Office Park Uses. The property owner requests
this 17 acres be guided for Warehouse/Light Industrial consistent with the land
use designation of the property south of the DNR tributary.
o Comment: The 2040 Land Use Plan for the area south of 215th Street guides
Office Park Uses for the area abutting CSAH 70 with Warehouse/Light Industrial
uses as a second tier of development. The DNR tributary is a physical barrier
that will define the development of the property. Guiding the area south of the
DNR tributary for Warehouse/Light Industrial will result in a contiguous
development of similar uses.
o Recommendation. Modify 2040 Land Use Plan to guide 17 acres south of the
DNR tributary for Warehouse/Light Industrial Uses.
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12. Powell:
o Request: During the Planning District meeting, the property owner questioned
why a portion of their property was included within the MUSA and a portion of
the property was included within the Urban Reserve.
o Comment: The Engineering Division states that the entire property is to be
served by trunk sewer extended west from 207th Street making urban
development feasible.
o Recommendation: Modify the 2040 MUSA Staging Plan to include the entire
property within the MUSA and change the current Rural Density Residential use
designation to Medium/High Density residential consistent with the existing
townhouse use to the east.
District 7
13. Carron:
o Request: Revise the draft 2040 MUSA Staging Plan to bring the entire property
into the current MUSA.
o Comment: The portion of the property shown to be within MUSA Expansion
Area B is to be provided sewer utilities via a different sewershed than the
balance of the area (see Figure below). The trunk sewer that will serve the
portion the property within MUSA Expansion Area B is extended to the area
through properties guided as Urban Reserve not planned to be brought into the
MUSA before 2040. At the time the property is developed, development of a
grading plan may allow for gravity sewer service for the entire property and a
Comprehensive Plan amendment to include the entire property in the MUSA
may be considered.
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o Recommendation. No Change.
14. Sauber:
o Request: The property owner requests that the property remain guided for Rural
Density Residential use on the 2040 Land Use Plan.
o Comment: The Sauber property is located east of the Haley property discussed
above and developed with one single family dwelling. The property is in the
MUSA as the existing house is connected to sewer utilities. Due to Shoreland
Overlay District development standards, wetland protection requirements, and
access limits to 185th Street (CSAH 60), the property cannot be further
subdivided. The Rural Density Residential use category is intended to be
designated for areas planned for single family dwellings served by septic utilities.
The Low Density Residential use category plans for development of single family
dwellings at less than 3.0 dwelling units per acre served by sewer utilities. As the
property is served by sewer utilities but cannot be developed further beyond the
existing single family dwelling, the 2040 Land Use Plan should guide the property
for Low Density Residential uses.
o Recommendation: Designate the property as being within the MUSA and guide
the property for Low Density Residential uses.
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15. Haley/Stoddard:
o Request: Haley requested during the first round of Planning District meetings
that their property be included within the MUSA and be guided for residential
development. Stoddard owns the abutting property to the west of Haley and has
requested their property remain within the Urban Reserve and be guided for
Rural Density Residential use.
o Comment: The area south of 185th Street from the Healy property west has
opportunity for urban development with sanitary sewer and water utilities
within the 185th Street right-of-way. On this basis, the draft 2040 MUSA Staging
Plan included the properties from the Haley property west to Judicial Road
within the MUSA. The area was guided on the draft 2040 Land Use Plan for
Low/Medium Density Residential use. Stoddard is requesting the proposed
changes to the MUSA Staging Plan and 2040 Land Use Plan revert to the 2008
Comprehensive Plan designations. Any development of this area will require
assembly of multiple parcels as intersection spacing requirements on 185 th
Street (CSAH 60) will limit potential access locations. Without participation of the
Stoddard property, urban development is likely not possible. The previous MUSA
Staging Plan and 2030 Land Use Plan designations would have held these
properties in Rural Density Development at least until 2030.
o Recommendation: City staff recommends modifying the 2040 MUSA Staging
Plan map to designate the properties from Haley west to Judicial Road as MUSA
Expansion Area B and make no change to the draft 2040 Land Use Plan.
CONCLUSION
The Planning Commission is to review the changes to the 2040 MUSA Staging Plan and 2040
Land Use Plan requested for specific properties at a work session on 19 April 2018. The work
session is to be held in the Council Chambers to allow property owners the opportunity to
address the Planning Commission directly with their requests. City staff is seeking direction
from the Planning Commission as to any modifications of the MUSA Staging Plan and Land Use
Plan that are to be recommended to the City Council. Following the Planning Commission work
session, the requested changes for specific properties will be reviewed by the City Council at a
work session on 23 April 2018.
c. Justin Miller, City Administrator
David Olson, Community and Economic Development Director
Zachary Johnson, City Engineer
John Hennen, Parks and Recreation Director
2040 Land Use Plan - Residential Designations
Land Use Density Allowed Uses
Rural Density Residential 1du/10ac. Single family dwellings.
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. Detached townhouse, quad or row
townhouse or back-to-back
townhouse dwelling units.
High Density
Residential
More than 9.0 du/ac. Back-to-back townhouse and
multiple family dwelling units.
Manufactured
Home Park
4.0 to 7.0 du/ac. Manufactured home dwelling
units.
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
Corridor Mixed Use (CMU) Mix of retail, service, or office commercial uses and high
density residential uses at up to 26 du./ac. 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