Loading...
HomeMy WebLinkAboutItem 05City of Lakeville Community & Economic Development Memorandum To: Mayor and City Council Justin Miller, City Administrator From: David L. Olson, Community and Economic Development Director Copy: Kati Bachmayer, Economic Development Specialist Bryan Harjes, HKGi Date: May 24, 2018 Subject: Review of Draft Downtown Development Guide Update The City Council has been presented with information by the City’s consultant HKGi on the Downtown Development Guide at the January Joint Work Session with the Planning Commission and EDC and the February City Council Work Session. During these work sessions, information was presented on the Project Background, Existing Conditions, and the Downtown Development Guide proposed Urban Development Framework. HKGi has incorporated the feedback that was received at these meetings, along with discussions with City staff, input received during two public open houses, works sessions with the Economic Development Commission and Planning Commission and comments received from an online public survey into the attached Draft Downtown Development Guide Update. This information is contained in Chapters 1 and 2 of the Draft Plan. Chapter 3 of the Draft Plan is titled Downtown Development Guide. This chapter addresses the following: • Approach to the Downtown Development Guide • Downtown Land Use and Development Character Initiatives • Transportation and Wayfinding • Parks, Trails, and Open Spaces • Downtown Reinvestment Strategies Chapter 4 of the Draft Plan is titled Implementation. This chapter addresses the following: • Keys to Implementation • Roles and Responsibilities • Priority Actions • Land Use Controls • Tools for Public Investments Bryan Harjes with HKGi and staff plan to focus the May 29th City Council presentation and discussion on Chapters 3 and 4 of the Draft Plan. We are however providing a link to the full draft plan for those who wish to review the entire document (https://hkgi.sharefile.com/d- s87f852673a4417ca). This same information was presented to the EDC at their April 24th meeting and the Planning Commission at a work session on May 3rd. Copies of the minutes from these meetings are attached. After review and discussion at the May 29th City Council Work Session, it is anticipated that the Downtown Development Guide will be scheduled for final approval at a Regular City Council meeting in June Action Requested: Provide input and recommendations on the Draft Downtown Development Guide Update. CITY OF LAKEVILLE PLANNING COMMISSION WORK SESSION MINUTES May 3 , 2018 Chair Kaluza called the work session to order at 6:35 p.m. Members Present: Chair Pat Kaluza, Vice Chair Jason Kelvie, Karl Drotning, Scott Einck, Brooks Lillehei, Jason Swenson, and Jeff Witte Members Absent: Ex-Officio Member Lamm Staff Present: Planning Director Daryl Morey, Community and Economic Development Director Dave Olson, Associate Planner Frank Dempsey, Economic Development Specialist Kati Bachmayer, and Bryan Harjes, HKGi Others Present: Mike Grieger Downtown Development Guide Update Mr. Olson introduced this agenda item by providing an outline of the process to date. Mr. Harjes outlined the elements of the draft Downtown Development Guide (DDG), focusing on Chapters 3 (Downtown Development Guide) and 4 (Implementation). He noted that an initial discussion on the DDG was held with the Planning Commission at their March 1, 2018 work session. Planning Commission comments: • Why is the post office important to the downtown and how does the post office affect parking downtown? • Adequate parking is important to the vitalization of downtown. • The possibility of private-public partnerships to provide parking downtown that can also be utilized for public events such as Pan-O-Prog, Taste of Lakeville, and the Arts Festival. • If public funding is utilized for a private project, the City should expect a higher quality design. • What are the actual parking needs for the existing senior housing uses downtown? • If additional restaurants/bars are planned downtown, there needs to be adequate parking within close proximity. • Parking for the businesses should not encroach into and adversely impact the surrounding residential areas. • What is the likelihood that the Lakeville Mall will be redeveloped to a more upscale building? Planning Commission Work Session Minutes – May 4, 2018 Page 2 2018 Zoning Ordinance Update, Part 2 Discussion Mr. Morey introduced the topics for discussion with the 2018 Zoning Ordinance Update, Part 2 as described in detail in the April 25, 2018 TPC planning report. Planning Commission comments: • If there is continuous non-compliance with the performance standards for the keeping of chickens, can the City revoke the administrative permit? • Mr. Grieger requested allowing more than two chickens per property. The Planning Commission supported increasing the number of hens allowed per property to three. • Concerns about large chicken coops being abandoned and used as a storage shed and how that relates to the accessory building requirements in Chapter 18 of the Zoning Ordinance. Suggested reducing the maximum allowed coop size to something far less than the draft’s proposed 200 square feet. • In the past, the Planning Commission has had extensive debate about whether a chicken is a farm animal or a pet. By allowing urban chickens, they would be considered a pet. This could open the door to requests for other farm animals to be considered as pets (i.e. other poultry, pigs or goats). • While some Planning Commission members do not support allowing urban chickens, they want the best possible performance standards in place if approved by the City Council. • Consideration should be given to allowing motor salvage auctions or uses in the I-2 District by CUP provided all activities and storage occurs inside a building. The work session adjourned at 8:30 p.m. Respectfully submitted, Daryl Morey, Planning Director 29Downtown Development Guide 3 . DOWNTOWN DevelOpmeNT GuiDe approach to the Downtown Development guide The updated Development Guide uses an Urban Design Framework to summarize the reinvestment and redevelopment opportunities that should be pursued over the next decade. This chapter details the proposed improvements to Downtown using four elements. 1. Downtown Land Use and Development Character Initiatives The Guide identifies where Downtown’s land uses may transition, given potential redevelopment opportunities. This section also outlines commercial, residential, and employment initiatives that will help to achieve a development character that is compatible with the overall vision for downtown. 2. Transportation and Wayfinding This section considers the implications of transportation on redevelopment, and provides initiatives to improve streets, parking, signage, and gateways into Downtown. These strengthen wayfinding and organize travel within Downtown, while improving broader connections to it. 3. Parks, Trails, and Open Spaces This section explores how Downtown can support community gathering, connect to the surrounding region via the Lake Marion Greenway, and provide visitors and residents with a healthy, vibrant public realm. 4. Downtown Reinvestment Strategies Finally, the Downtown Development Guide Update looks to facilitate redevelopment through reinvestment strategies. These recommended actions, policies, and procedures will guide downtown business development and help to create a destination that sustains businesses and celebrates local heritage. 30 Lakeville Downtown Development Guide Update Urban Design Framework The Urban Design Framework for Downtown Lakeville builds upon the issues and opportunities provided by City staff, stakeholders, and the general public. The following graphic illustrates the proposed redevelopment initiatives that are covered in this chapter. ¯0 200 400 600 800 1,000100Feet Legend City Boundaries Dakota County CDA Trails Existing Trail Planned Trail Existing Alternate Route Planned Alternate Route Sidewalks Wetlands Water Bodies Rivers and Streams Downtown Parks Draft 4/05/2018 Project Boundary JayceePark Quigley Sime Park Sout h C r e e k Lake M a r i o n G r e e n w a y Terrace Park McGuire Middle School John F. Kennedy Elementary School Pione e r Plaza urban D esign framework Holyoke AveHolyoke AveHowland AveHolt Ave206th St 207th St 209th St 210th St Upper 209th St 208th St Upper 2 0 8 th St 206th St 205th St     Long-term Residential Projects • Coordinate with future Iberia Ave extension • Reliant on existing industry transitioning to Airlake industrial area or elsewhere Gateway Gateway MDR Despatch HDR MDR MDR MD/HDRHDR MDR MDR MIX MIX MIX MIX COMM. COMM. COMM. MIX MDR MDR MD/HDR Gateway Lake Marion Greenway Gateway & Downtown Route Potential Future Structured Parking Ibe r ia Avenue Ex tens ion (can be phased ) Iberia Avenue Extension (can be phased) Use Jaycee Park for stormwater management when Iberia Avenue is extended Mixed-use Development • Could be phased and/or include redevelopment of some parts of existing building • Re-stripe parking lot, adding landscaping and/or patio spaces along storefront entrances Expanded Parking/Residential Protect surrounding residential neighborhoods using: • Streetscape enhancements • Land use transitions • Traffic controls • Parking restricitons • Landscaping and screening Long-term “Cottage Commercial” opportunities along Holyoke Ave from 207th to CR 50 Art Center Mixed-use Housing • Artists-in-Residence Housing • Studio Space • Display Space Alternative Learning Center Options: • Remain ISD Learning Center • City purchases for Arts Center Expansion • Demo and expand as flexible parking/ Festival Space/Housing Entertainment District Reorganize commercial parcels around re-oriented Upper 208th Street • Pedestrian street with controlled vehicular access • Flexible for festival use • Space for restaurant/brewery outdoor seating & gatherings/games/events Arts District Reorganize commercial parcels around re-oriented Upper 208th Street • Pedestrian street with controlled vehicular access • Flexible for festival use • Space for restaurant/brewery patio seating & games b b a C Park Park ISD ADMIN HDR Futur e L a k e M a r i o n G r e e n w a y MIX Despatch C Figure 3.1 | Urban Design Framework 31Downtown Development Guide The Downtown Development Guide’s approach involves creating a flexible framework that allows for the ongoing evolution of Downtown Lakeville as the market allows. The Framework: »Supports increased density and building height where they do not impact existing land uses »Plans for parking now, but leaves future parking requirements flexible »Incorporates walkability and bikeability as key strategies »Engages entrepreneurs and potential developers at this early stage »Markets Downtown as a destination for the “South of the River” crowd »Enhances gateways into the Downtown »Improves public spaces for community gathering »Sets the stage to attract desirable tenants and uses over time Downtown Land Use and Development character initiatives While the Land Use Plan shown in Figure 1.5 will continue to guide development in Lakeville for the next decade, the Urban Design Framework includes a few areas where, should the opportunity arise, certain parcels could transition to a land use different than that shown in the 2040 Comprehensive Plan. The following initiatives describe aspects of the Urban Design Framework where guiding redevelopment in a specific direction will help Downtown to achieve the desired character. 1. Redevelop isolated industrial areas west of Downtown into Housing The primary changes involve long-term residential projects on the western edge of Downtown, some of which are already designated as future residential land uses. The current Despatch properties will continue to be designated industrial/warehouse until Despatch decides to relocate, at which point the parcels make sense to transition to a residential land use. Concentrating medium and high-density housing along the western edge of Downtown takes advantage of the existing railroad as a transitional space, which acts as a buffer for the single-family neighborhoods to the west. Increasing the density of housing available in Downtown Lakeville is in line with market projections, allows a greater number of people to enjoy Downtown’s amenities, and will help to support local businesses. This area’s proximity to the Lake Marion Greenway offers a major benefit to future residents.Medium/High-den sity R e s i d ential Medium-density R e sid e n t i a lMedium/High-den sity R e s i d entialHigh-density Resid e n t ia l Medium-density R e sid e n t i a l Medium-density R e sid e n t i a l 32 Lakeville Downtown Development Guide Update 2. explore Redevelopment of strategic sites in the Downtown The Lakeville Mall Site The Lakeville Mall sits at a gateway intersection into downtown. With two of the four corners unoccupied by structures due to parking lot frontage, this corner functions as an important anchor. The block houses several businesses and Lakeville’s Post Office, but the building’s dated aesthetic contrasts with the historic brick buildings of the Ben Franklin Block across Holyoke. Concept A below illustrates a partial redevelopment of the block that maintains the Mall shops along Holyoke, but suggests facade improvements to update the look and create a more inviting entry to Downtown from the north. Brickwork, larger windows, neutral awnings, and unique signage would better complement the existing historic character found elsewhere in Downtown. On the back of the block, the Post Office moves to the base of a mixed-use building as a retail storefront, with their warehousing and distribution activities relocated out of the Downtown. Parking could be added across 207th to the north by expanding the current lot into the adjacent vacant parcel. To the south, the shared parking lot between the Lakeville Mall and the former Enggren’s Mall is shown with enhancements that improve pedestrian access, create more welcoming entries into the buildings, and add landscaping to break up the large lot. Concept B illustrates how the block could be completely redeveloped with a mix of uses. Commercial storefronts along Holyoke, including a new Post Office, could have office or residential above. As in Concept A, the Post Office’s warehousing and distribution activities would be relocated, and the parking lot to the south would undergo enhancements to improve the experience for pedestrians. A parking structure serving the new development would occupy a portion of the interior of the block. Townhomes along the eastern facade of the building orient the back of the block to the neighborhood. The addition of medium-density residential across 207th Street to the north rounds out the mix of housing options at this prime location. Figure 3.2 | Lakeville Mall: Concept A Figure 3.3 | Lakeville Mall: Concept BMixed-use Com m erc ia lMixed-Use Residen tia l 33Downtown Development Guide The Upper 208th Street West Block Oriented around an old railroad line, Upper 208th Street is skewed at an odd angle between Holyoke and Howland. With successful breweries on the south side of the Street and the institution that is the Dairy Delite, this block is the closest thing Lakeville has to an entertainment destination; however, the businesses are successful in spite of their strangely arranged block, not because of it. In order to make a more inviting public realm that feels less like a repurposed industrial corridor, the concepts below explore improvements to Upper 208th Street W and the surrounding properties. Concept A preserves the brewery buildings on the south side of 208th, but transforms the street into a shared-use plaza street that expands their patio space, adds pedestrian-scaled amenities and landscaping, and can function as a festival plaza during large events like Pan-o-Prog. The adjacent daycare facility to the north is envisioned as a new mixed-use development with a restaurant and rooftop patio space that overlooks the new plaza street. The development is shown extending farther west than the current building in order to form a more continuous facade along 208th that hides parking behind. The presence of additional dining options in Downtown Lakeville is strongly desired, and siting a new restaurant in this location would draw on the existing energy of this block to reinforce its role as a destination. Concept B illustrates what a full redevelopment of this block could look like, including a re-orientation of Upper 208th Street W to form a more direct east-west connection between Holyoke and Howland. This shared-use plaza street would be a prime location for Lake Marion Greenway users to enter downtown, and would function as a festival plaza during large events like Pan- o-Prog. The Upper 208th Street plaza would be flanked by a new mixed-use building to the north, and updated commercial buildings to the south built to suit the existing businesses. A shared beer garden/patio space would provide a dedicated outdoor space for the breweries. The existing parking lot north of Upper 208th could transition to a district parking ramp if parking becomes an issue Downtown. Figure 3.4 | Upper 208th Street West Block: Concept A Figure 3.5 | Upper 208th Street West Block: Concept BShared-use Street P la z a 34 Lakeville Downtown Development Guide Update Lakeville Tire & Auto Site and the Lakeville Learning Center (ISD 194) The land south of 209th and north of the Lakeville Area Arts Center has only two structures on it, one of which, the Lakeville Area Learning Center, is facing more than $1 million in deferred maintenance costs. If ISD 194 decides to relocate the Learning Center elsewhere, the City will have the opportunity to expand its land holdings on this block. With the Arts Center attracting visitors on a regular basis and Pan-o-Prog transforming this area into a hub of activity during the festival, this site is positioned as a prime location to host large community events. The Festival Plaza and Pavilion Concept illustrates how this land could transform into a flexible plaza anchored on the north by a new Farmers Market Pavilion and on the south by the Arts Center. The plaza could function as a district parking lot during non-event times. During markets, events, and festivals, the space would be activated as a town square of sorts, where large crowds could gather to enjoy food and drinks, browse vendors, and people watch. The space could host food trucks, a portion of it could be set up seasonally as a pop-up park, or the City could erect a temporary rink and warming tent for a winter festival. The market pavilions could be phased in if/when Lakeville Tire & Auto chooses to relocate. The spaces could be rentable for large gatherings when not reserved for markets. A destination playground and splash plaza would add to this community space, making it a truly vibrant Downtown attraction.Flexible Food Truck C o u r t S e t-up Farmers Market Pa v ilio n sFestival Plaza Set-u pDowntown Market & P l a z a Space Splash Plaza Examples 35Downtown Development Guide Figure 3.6 | Festival Plaza and Pavilion Concept Pop-up Park Spaces Seasonal Festival Set-up Destination Playground / Splash Plaza 36 Lakeville Downtown Development Guide Update 3. explore Future Redevelopment of Underutilized and industrial Land in the central Business District Industrial uses and single-family homes within the Downtown boundary are likely to transition away from the highest and best uses of this valuable land as the population grows and increases demand for well-located housing, office, and commercial space. There are several locations where redevelopment could occur. Figure 3.7 | Single-family Home Redevelopment Areas¯0 200 400 600 800 1,000100Feet Legend City Boundaries Dakota County CDA Trails Existing Trail Planned Trail Existing Alternate Route Planned Alternate Route Sidewalks Wetlands Water Bodies Rivers and Streams Downtown Parks Draft 4/05/2018 Project Boundary JayceePark Quigley Sime Park Sout h C r e e k Lake M a r i o n G r e e n w a y Terrace Park McGuire Middle School John F. Kennedy Elementary School Pione e r Plaza urban D esign framework Holyoke AveHolyoke AveHowland AveHolt Ave206th St 207th St 209th St 210th St Upper 209th St 208th St Upper 2 0 8 th St 206th St 205th St     Long-term Residential Projects • Coordinate with future Iberia Ave extension • Reliant on existing industry transitioning to Airlake industrial area or elsewhere Gateway Gateway MDR Despatch HDR MDR MDR MD/HDRHDR MDR MDR MIX MIX MIX MIX COMM. COMM. COMM. MIX MDR MDR MD/HDR Gateway Lake Marion Greenway Gateway & Downtown Route Potential Future Structured Parking Ibe r ia Avenue Ex tens ion (can be phased ) Iberia Avenue Extension (can be phased) Use Jaycee Park for stormwater management when Iberia Avenue is extended Mixed-use Development • Could be phased and/or include redevelopment of some parts of existing building • Re-stripe parking lot, adding landscaping and/or patio spaces along storefront entrances Expanded Parking/Residential Protect surrounding residential neighborhoods using: • Streetscape enhancements • Land use transitions • Traffic controls • Parking restricitons • Landscaping and screening Long-term “Cottage Commercial” opportunities along Holyoke Ave from 207th to CR 50 Art Center Mixed-use Housing • Artists-in-Residence Housing • Studio Space • Display Space Alternative Learning Center Options: • Remain ISD Learning Center • City purchases for Arts Center Expansion • Demo and expand as flexible parking/ Festival Space/Housing Entertainment District Reorganize commercial parcels around re-oriented Upper 208th Street • Pedestrian street with controlled vehicular access • Flexible for festival use • Space for restaurant/brewery outdoor seating & gatherings/games/events Arts District Reorganize commercial parcels around re-oriented Upper 208th Street • Pedestrian street with controlled vehicular access • Flexible for festival use • Space for restaurant/brewery patio seating & games b b a C Park Park ISD ADMIN HDR Futur e L a k e M a r i o n G r e e n w a y MIX Despatch C Single-family Homes along Holyoke Underutilized Industrial Land Underutilized Industrial Land Single-family Homes along the west side of Howland Avenue Single-family Homes along the west side of Holt Avenue Single-family Homes along 210th Street 37Downtown Development Guide 4. consider mixed-use Redevelopment along Holyoke Areas shown in the Urban Design Framework as “Mix,” indicate the potential for a mixed-use development, which can occur horizontally or vertically, involving commercial, office, and/or residential units. Currently, there is no mixed-use land designation in the Lakeville Comprehensive Plan, so the majority of these parcels are simply designated commercial. The addition of housing as an option in these commercially-designated areas expands their flexibility for development, would add additional tax base, and increases the number of people present in the Downtown on a daily basis, which contributes to a vibrant public realm. Parking could be accommodated below grade, or in district parking lots or structures if demand for parking is projected to outpace supply.Mixed-use Develop m e n tMixed-use Develop m e n tMixed-use Develop m e n t Figure 3.8 | Mixed-use Redevelopment along Holyoke¯0 200 400 600 800 1,000100Feet Legend City Boundaries Dakota County CDA Trails Existing Trail Planned Trail Existing Alternate Route Planned Alternate Route Sidewalks Wetlands Water Bodies Rivers and Streams Downtown Parks Draft 4/05/2018 Project Boundary JayceePark Quigley Sime Park Sout h C r e e k Lake M a r i o n G r e e n w a y Terrace Park McGuire Middle School John F. Kennedy Elementary School Pione e r Plaza urban D esign framework Holyoke AveHolyoke AveHowland AveHolt Ave206th St 207th St 209th St 210th St Upper 209th St 208th St Upper 2 0 8 th St 206th St 205th St     Long-term Residential Projects • Coordinate with future Iberia Ave extension • Reliant on existing industry transitioning to Airlake industrial area or elsewhere Gateway Gateway MDR Despatch HDR MDR MDR MD/HDRHDR MDR MDR MIX MIX MIX MIX COMM. COMM. COMM. MIX MDR MDR MD/HDR Gateway Lake Marion Greenway Gateway & Downtown Route Potential Future Structured Parking Ibe r ia Avenue Ex tens ion (can be phased ) Iberia Avenue Extension (can be phased) Use Jaycee Park for stormwater management when Iberia Avenue is extended Mixed-use Development • Could be phased and/or include redevelopment of some parts of existing building • Re-stripe parking lot, adding landscaping and/or patio spaces along storefront entrances Expanded Parking/Residential Protect surrounding residential neighborhoods using: • Streetscape enhancements • Land use transitions • Traffic controls • Parking restricitons • Landscaping and screening Long-term “Cottage Commercial” opportunities along Holyoke Ave from 207th to CR 50 Art Center Mixed-use Housing • Artists-in-Residence Housing • Studio Space • Display Space Alternative Learning Center Options: • Remain ISD Learning Center • City purchases for Arts Center Expansion • Demo and expand as flexible parking/ Festival Space/Housing Entertainment District Reorganize commercial parcels around re-oriented Upper 208th Street • Pedestrian street with controlled vehicular access • Flexible for festival use • Space for restaurant/brewery outdoor seating & gatherings/games/events Arts District Reorganize commercial parcels around re-oriented Upper 208th Street • Pedestrian street with controlled vehicular access • Flexible for festival use • Space for restaurant/brewery patio seating & games b b a C Park Park ISD ADMIN HDR Future L a k e M a r i o n G r e e n w a y MIX Despatch C 38 Lakeville Downtown Development Guide Update 5. Reinvest in Historic commercial Buildings Historic brick buildings are what make Holyoke Avenue feel like one of the only proper main streets in the south metro. Maintaining and investing in these buildings is key to Downtown Lakeville’s character and charm. 6. enhance Upper Levels of commercial Buildings as Living spaces Retrofitting second-story commercial or office spaces as residential can expand the types of housing available in Lakeville and capitalize on the Downtown’s prime location for those who want a more urban lifestyle. 7. support the improvement of and Reinvestment in the Housing stock in surrounding neighborhoods The existing housing stock surrounding Downtown is some of the most affordable in the City and meets the needs of both first-time home buyers and those looking to downsize. Programs and incentives that encourage upkeep of these homes is important to maintain their quality.Add Upper Level Re sid e n t i a l UnitsReinvest in Historic C o m m e r cial Encourage Upkeep & R e i n v e stment 39Downtown Development GuideTrail Connectors th ro u g h R e sidential Greenway Gatew a y fr o m D o wntownHousing along G ree n w a y 8. Focus Residential Development along Lake marion greenway Market forces may encourage industrial and single-family residential land uses along the future Lake Marion Greenway to relocate over time. As they become available, redevelopment of these parcels should focus on high and medium-density residential land use. Increasing the number of people living along the Greenway will promote active living and attract new residents to Downtown to take advantage of the location and amenities. Figure 3.9 | Residential Redevelopment along Lake Marion Greenway¯0 200 400 600 800 1,000100Feet Legend City Boundaries Dakota County CDA Trails Existing Trail Planned Trail Existing Alternate Route Planned Alternate Route Sidewalks Wetlands Water Bodies Rivers and Streams Downtown Parks Draft 4/05/2018 Project Boundary JayceePark Quigley Sime Park Sout h C r e e k Lake M a r i o n G r e e n w a y Terrace Park McGuire Middle School John F. Kennedy Elementary School Pione e r Plaza urban D esign framework Holyoke AveHolyoke AveHowland AveHolt Ave206th St 207th St 209th St 210th St Upper 209th St 208th St Upper 2 0 8 th St 206th St 205th St     Long-term Residential Projects • Coordinate with future Iberia Ave extension • Reliant on existing industry transitioning to Airlake industrial area or elsewhere Gateway Gateway MDR Despatch HDR MDR MDR MD/HDRHDR MDR MDR MIX MIX MIX MIX COMM. COMM. COMM. MIX MDR MDR MD/HDR Gateway Lake Marion Greenway Gateway & Downtown Route Potential Future Structured Parking Ibe r ia Avenue Ex tens ion (can be phased ) Iberia Avenue Extension (can be phased) Use Jaycee Park for stormwater management when Iberia Avenue is extended Mixed-use Development • Could be phased and/or include redevelopment of some parts of existing building • Re-stripe parking lot, adding landscaping and/or patio spaces along storefront entrances Expanded Parking/Residential Protect surrounding residential neighborhoods using: • Streetscape enhancements • Land use transitions • Traffic controls • Parking restricitons • Landscaping and screening Long-term “Cottage Commercial” opportunities along Holyoke Ave from 207th to CR 50 Art Center Mixed-use Housing • Artists-in-Residence Housing • Studio Space • Display Space Alternative Learning Center Options: • Remain ISD Learning Center • City purchases for Arts Center Expansion • Demo and expand as flexible parking/ Festival Space/Housing Entertainment District Reorganize commercial parcels around re-oriented Upper 208th Street • Pedestrian street with controlled vehicular access • Flexible for festival use • Space for restaurant/brewery outdoor seating & gatherings/games/events Arts District Reorganize commercial parcels around re-oriented Upper 208th Street • Pedestrian street with controlled vehicular access • Flexible for festival use • Space for restaurant/brewery patio seating & games b b a C Park Park ISD ADMIN HDR Futur e L a k e M a r i o n G r e e n w a y MIX Despatch C 40 Lakeville Downtown Development Guide Update Transportation and wayfinding The following initiatives work to improve Downtown’s streets, parking, signage, and gateways. These projects aim to strengthen wayfinding and organize travel within Downtown, while improving broader connections to it. 1. extend iberia avenue south as a Parkway Downtown begins to lose its form as it approaches the railroad to the west. Extending Iberia Avenue south along the western border of Downtown creates a defined edge to the district and offers dedicated access to new development opportunities. A parkway character would complement the planned Lake Marion Greenway trail and is compatible with the proposed residential land uses. The Iberia Avenue extension could be phased from 205th to 207th, around the west side of Despatch, and finally from 208th down to 210th, as properties are able to be acquired and developments are proposed. Figure 3.10 | Iberia Avenue Parkway ExtensionParkway CharacterGreenway along Pa rk w a y ¯0 200 400 600 800 1,000100Feet Legend City Boundaries Dakota County CDA Trails Existing Trail Planned Trail Existing Alternate Route Planned Alternate Route Sidewalks Wetlands Water Bodies Rivers and Streams Downtown Parks Draft 4/05/2018 Project Boundary JayceePark Quigley Sime Park Sout h C r e e k Lake M a r i o n G r e e n w a y Terrace Park McGuire Middle School John F. Kennedy Elementary School Pione e r Plaza urban D esign framework Holyoke AveHolyoke AveHowland AveHolt Ave206th St 207th St 209th St 210th St Upper 209th St 208th St Upper 2 0 8 th St 206th St 205th St     Long-term Residential Projects • Coordinate with future Iberia Ave extension • Reliant on existing industry transitioning to Airlake industrial area or elsewhere Gateway Gateway MDR Despatch HDR MDR MDR MD/HDRHDR MDR MDR MIX MIX MIX MIX COMM. COMM. COMM. MIX MDR MDR MD/HDR Gateway Lake Marion Greenway Gateway & Downtown Route Potential Future Structured Parking Ibe r ia Avenue Ex tens ion (can be phased ) Iberia Avenue Extension (can be phased) Use Jaycee Park for stormwater management when Iberia Avenue is extended Mixed-use Development • Could be phased and/or include redevelopment of some parts of existing building • Re-stripe parking lot, adding landscaping and/or patio spaces along storefront entrances Expanded Parking/Residential Protect surrounding residential neighborhoods using: • Streetscape enhancements • Land use transitions • Traffic controls • Parking restricitons • Landscaping and screening Long-term “Cottage Commercial” opportunities along Holyoke Ave from 207th to CR 50 Art Center Mixed-use Housing • Artists-in-Residence Housing • Studio Space • Display Space Alternative Learning Center Options: • Remain ISD Learning Center • City purchases for Arts Center Expansion • Demo and expand as flexible parking/ Festival Space/Housing Entertainment District Reorganize commercial parcels around re-oriented Upper 208th Street • Pedestrian street with controlled vehicular access • Flexible for festival use • Space for restaurant/brewery outdoor seating & gatherings/games/events Arts District Reorganize commercial parcels around re-oriented Upper 208th Street • Pedestrian street with controlled vehicular access • Flexible for festival use • Space for restaurant/brewery patio seating & games b b a C Park Park ISD ADMIN HDR Futur e L a k e M a r i o n G r e e n w a y MIX Despatch C 41Downtown Development Guide 2. identify Locations for Future Potential structured Parking As Downtown undergoes redevelopment, the need for expanded parking facilities may arise. Suitable locations for structured parking facilities are highlighted below. Standalone parking garages should have facades that complement Downtown’s historic aesthetic. Adaptable reuse of the structure as office or future housing should be a consideration. Figure 3.11 | Future Potential Structured Parking Locations Structured Parking ¯0 200 400 600 800 1,000100Feet Legend City Boundaries Dakota County CDA Trails Existing Trail Planned Trail Existing Alternate Route Planned Alternate Route Sidewalks Wetlands Water Bodies Rivers and Streams Downtown Parks Draft 4/05/2018 Project Boundary JayceePark Quigley Sime Park Sout h C r e e k Lake M a r i o n G r e e n w a y Terrace Park McGuire Middle School John F. Kennedy Elementary School Pione e r Plaza urban D esign framework Holyoke AveHolyoke AveHowland AveHolt Ave206th St 207th St 209th St 210th St Upper 209th St 208th St Upper 2 0 8 th St 206th St 205th St     Long-term Residential Projects • Coordinate with future Iberia Ave extension • Reliant on existing industry transitioning to Airlake industrial area or elsewhere Gateway Gateway MDR Despatch HDR MDR MDR MD/HDRHDR MDR MDR MIX MIX MIX MIX COMM. COMM. COMM. MIX MDR MDR MD/HDR Gateway Lake Marion Greenway Gateway & Downtown Route Potential Future Structured Parking Ibe r ia Avenue Ex tens ion (can be phased ) Iberia Avenue Extension (can be phased) Use Jaycee Park for stormwater management when Iberia Avenue is extended Mixed-use Development • Could be phased and/or include redevelopment of some parts of existing building • Re-stripe parking lot, adding landscaping and/or patio spaces along storefront entrances Expanded Parking/Residential Protect surrounding residential neighborhoods using: • Streetscape enhancements • Land use transitions • Traffic controls • Parking restricitons • Landscaping and screening Long-term “Cottage Commercial” opportunities along Holyoke Ave from 207th to CR 50 Art Center Mixed-use Housing • Artists-in-Residence Housing • Studio Space • Display Space Alternative Learning Center Options: • Remain ISD Learning Center • City purchases for Arts Center Expansion • Demo and expand as flexible parking/ Festival Space/Housing Entertainment District Reorganize commercial parcels around re-oriented Upper 208th Street • Pedestrian street with controlled vehicular access • Flexible for festival use • Space for restaurant/brewery outdoor seating & gatherings/games/events Arts District Reorganize commercial parcels around re-oriented Upper 208th Street • Pedestrian street with controlled vehicular access • Flexible for festival use • Space for restaurant/brewery patio seating & games b b a C Park Park ISD ADMIN HDR Futur e L a k e M a r i o n G r e e n w a y MIX Despatch C 42 Lakeville Downtown Development Guide UpdateParking Lot Public R e a lm I m provements Civic Gateway Rou n d a b o u t Wayf nding and In te rs e c t i o n Improvements Bike Lane(s) on 207 th 3. enhanced Parking Lot Landscaping and east-west connections The private parking lot between the Lakeville Mall and Dakota Curling Club should be enhanced in conjunction with any future development or redevelopment of the Lakeville Mall site. The lot should include wide sidewalks along the storefronts that provide safe, comfortable passage for pedestrians travelling between Downtown and the neighborhood to the east. The fronting businesses should have welcoming landscaping and adequate spaces for outdoor seating. 4. create a “civic gateway” at cR 50 and Holyoke avenue CR 50 is slated to undergo construction that includes a proposed roundabout at the Holyoke Avenue intersection. This project provides a good opportunity to integrate a Civic Gateway feature leading into Downtown. 5. enhance Trail wayfinding and signage to Downtown As the Lake Marion Greenway is constructed, trail wayfinding and signage directing trail users to Downtown Lakeville should be included. Connections between Downtown and Terrace, Quigley Sime, and Aronson Parks should also be strengthened with signage and wayfinding. 6. identify and strengthen east-west Bike connections A dedicated bike route along Upper 206th Street W should be established in order to safely link Jaycee Park, Downtown, Terrace Park, and the other parks northeast of Downtown. Upper 206th Street W could be converted into a bike boulevard, or a bike lane could be added. Because 207th Street is the only passage through Downtown linking the neighborhoods on the east and west (and is slated to connect to Cedar Avenue in the future), it should be upgraded with bike lanes and intersection crossing improvements to better accommodate bike traffic. 43Downtown Development Guide Parks, Trails, and open spaces Parks, trails, and open spaces are essential to a healthy, vibrant neighborhood. Downtown Lakeville has several parks within walking distance that provide opportunities for passive and active recreation, but its biggest challenge lies in accomodating the masses of crowds that come to enjoy Pan-o-Prog in the summer. Providing this type of open space is a unique task for a Downtown of this size. If done right, Downtown Lakeville has the potential to be known as a lively environment that attracts people from across the region and can play host to more than just Pan-o-Prog throughout the year. The Development Guide Update proposes several features that will help facilitate Downtown’s transformation as an event destination, while providing quality public space for the people of Lakeville on a day-to-day basis. 1. Downtown Festival Park and Plaza If the Lakeville Area Learning Center relocates, the City will be primed to own a large parcel just north of one of Lakeville’s biggest community attractions–its Arts Center. This area already functions as a hub during Pan-o-Prog, so making it into a dedicated Festival Park and Plaza could serve both Arts Center and City-wide events. As a flexible plaza space, all or a portion of the site could provide parking when not hosting gatherings. The Downtown Festival Park would include activating elements like a water feature or play fountain and a focal art piece to maintain interest and attract visitors even when no events are scheduled. Moveable seating and planters could be set up in order to create more intimate and comfortable gathering spaces on the plaza. A destination playground with climbable features would ensure that the Festival Park attracts users throughout the week and functions as a neighborhood park for nearby residents and those visiting Downtown. The Festival Park would provide space for smaller-scale weekly events and programs like exercise classes, movies in the park, and food trucks. These types of programming energize the Downtown, attracting a variety of people together to enjoy each other’s company, and building community. 2. Permanent Farmers market Pavilion A permanent Farmers Market Pavilion is envisioned as a northern anchor to the Downtown Festival Park and Plaza. This feature would provide a protected location for the farmers market, and could be rented out for other events as a covered gathering space. Large, Flexible Plaza S p a c e Farmers Market Pa v ilio n Movies in the ParkCommunity Attractio n Transformed for Eve n t s a n d Festivals Civic Amenity 44 Lakeville Downtown Development Guide Update 3. Lake marion greenway Downtown Trail connection The Lake Marion Greenway Master Plan suggested a connection to Downtown Lakeville. Given the Iberia Avenue extension, the surrounding residential development proposed, and the potential for a reorientation of the brewery block to improve the Downtown’s entertainment district, Upper 208th Street W becomes an attractive location for a Greenway spur. Short-term, the Greenway’s Downtown connection could be achieved with lane painting and better signage along 208th Street W, where the Greenway currently crosses the railroad tracks. Long-term, as Iberia is extended and the surrounding medium-density residential gets developed, the Greenway Connection should be integrated into the developments as a trail between Iberia and Howland. A portion of the Howland and Upper 208th Street W intersection should function as a Greenway Gateway and Trailhead, where a kiosk can provide trail users with information about the Greenway and things to do in Downtown Lakeville. Adequate bike parking and amenities (water, repair station) should be situated here as well so that riders can stop and rest, or dismount their bikes and move about Downtown on foot. 4. Festival street The Lake Marion Greenway Downtown Trail Spur leads directly to the proposed Festival Street at the reoriented brewery block. Flanked by the breweries on the south and a proposed commercial building with a restaurant and rooftop patio to the north, this shared-use street is envisioned as an entertainment destination. The street could be closed to traffic using pop-up bollards and provide containment for outdoor beverage consumption during events. A stage could be set up for outdoor music during Pan-o- Prog or other festivals. Figure 3.12 | Lake Marion Greenway Downtown Trail Connection and Festival StreetFestival StreetGreenway Connectio n t h r o u gh Residential ¯0 200 400 600 800 1,000100Feet Legend City Boundaries Dakota County CDA Trails Existing Trail Planned Trail Existing Alternate Route Planned Alternate Route Sidewalks Wetlands Water Bodies Rivers and Streams Downtown Parks Draft 4/05/2018 Project Boundary JayceePark Quigley Sime Park Sout h C r e e k Lake M a r i o n G r e e n w a y Terrace Park McGuire Middle School John F. Kennedy Elementary School Pione e r Plaza urban D esign framework Holyoke AveHolyoke AveHowland AveHolt Ave206th St 207th St 209th St 210th St Upper 209th St 208th St Upper 2 0 8 th St 206th St 205th St     Long-term Residential Projects • Coordinate with future Iberia Ave extension • Reliant on existing industry transitioning to Airlake industrial area or elsewhere Gateway Gateway MDR Despatch HDR MDR MDR MD/HDRHDR MDR MDR MIX MIX MIX MIX COMM. COMM. COMM. MIX MDR MDR MD/HDR Gateway Lake Marion Greenway Gateway & Downtown Route Potential Future Structured Parking Ibe r ia Avenue Ex tens ion (can be phased ) Iberia Avenue Extension (can be phased) Use Jaycee Park for stormwater management when Iberia Avenue is extended Mixed-use Development • Could be phased and/or include redevelopment of some parts of existing building • Re-stripe parking lot, adding landscaping and/or patio spaces along storefront entrances Expanded Parking/Residential Protect surrounding residential neighborhoods using: • Streetscape enhancements • Land use transitions • Traffic controls • Parking restricitons • Landscaping and screening Long-term “Cottage Commercial” opportunities along Holyoke Ave from 207th to CR 50 Art Center Mixed-use Housing • Artists-in-Residence Housing • Studio Space • Display Space Alternative Learning Center Options: • Remain ISD Learning Center • City purchases for Arts Center Expansion • Demo and expand as flexible parking/ Festival Space/Housing Entertainment District Reorganize commercial parcels around re-oriented Upper 208th Street • Pedestrian street with controlled vehicular access • Flexible for festival use • Space for restaurant/brewery outdoor seating & gatherings/games/events Arts District Reorganize commercial parcels around re-oriented Upper 208th Street • Pedestrian street with controlled vehicular access • Flexible for festival use • Space for restaurant/brewery patio seating & games b b a C Park Park ISD ADMIN HDR Future L a k e M a r i o n G r e e n w a y MIX Despatch C Greenway ConneCtions Festival street 45 5. integrate Public art throughout the Downtown The arts can play a strong role in attracting people to Downtown Lakeville. The creation of an “Arts District” harnessing the energy of the Lakeville Area Arts Center and its unique downtown setting could create a strong Downtown node focused on events, galleries, and exhibitions. Nationally, small historic downtowns have economic development strategies that focus on attracting resident craftspeople (jewelers, glass workers, wood workers, potters, metal smiths, sculptors, etc.) to drive retail shopping, support local restaurants, and aid in tourism. Downtown Lakeville can look to this model to help spur redevelopment or champion reinvestment and transform existing buildings into workshops, studios, and galleries. Additionally, providing locations for more prominent displays of public art can also help to advance downtown Lakeville’s brand as an artistic destination. Public artworks can include street furniture, decorations, paving, and landmarks that can take many forms, including sculpture, decorative ironwork, mosaic installations, and murals. Public art brings creativity into everyday life, energizes public spaces, and provokes thoughfulness and imagination. Creating an organized and well-promoted collection of artistic opportunities in the Downtown can attract a new audience. The Lakeville Area Arts Center and partner organizations should be involved in implementation of the Downtown Development Guide as it relates to arts and economic development strategies. Figure 3.13 | Arts District Downtown Development Guide ¯0 200 400 600 800 1,000100Feet Legend City Boundaries Dakota County CDA Trails Existing Trail Planned Trail Existing Alternate Route Planned Alternate Route Sidewalks Wetlands Water Bodies Rivers and Streams Downtown Parks Draft 4/05/2018 Project Boundary JayceePark Quigley Sime Park Sout h C r e e k Lake M a r i o n G r e e n w a y Terrace Park McGuire Middle School John F. Kennedy Elementary School Pione e r Plaza urban D esign framework Holyoke AveHolyoke AveHowland AveHolt Ave206th St 207th St 209th St 210th St Upper 209th St 208th St Upper 2 0 8 th St 206th St 205th St     Long-term Residential Projects • Coordinate with future Iberia Ave extension • Reliant on existing industry transitioning to Airlake industrial area or elsewhere Gateway Gateway MDR Despatch HDR MDR MDR MD/HDRHDR MDR MDR MIX MIX MIX MIX COMM. COMM. COMM. MIX MDR MDR MD/HDR Gateway Lake Marion Greenway Gateway & Downtown Route Potential Future Structured Parking Ibe r ia Avenue Ex tens ion (can be phased ) Iberia Avenue Extension (can be phased) Use Jaycee Park for stormwater management when Iberia Avenue is extended Mixed-use Development • Could be phased and/or include redevelopment of some parts of existing building • Re-stripe parking lot, adding landscaping and/or patio spaces along storefront entrances Expanded Parking/Residential Protect surrounding residential neighborhoods using: • Streetscape enhancements • Land use transitions • Traffic controls • Parking restricitons • Landscaping and screening Long-term “Cottage Commercial” opportunities along Holyoke Ave from 207th to CR 50 Art Center Mixed-use Housing • Artists-in-Residence Housing • Studio Space • Display Space Alternative Learning Center Options: • Remain ISD Learning Center • City purchases for Arts Center Expansion • Demo and expand as flexible parking/ Festival Space/Housing Entertainment District Reorganize commercial parcels around re-oriented Upper 208th Street • Pedestrian street with controlled vehicular access • Flexible for festival use • Space for restaurant/brewery outdoor seating & gatherings/games/events Arts District Reorganize commercial parcels around re-oriented Upper 208th Street • Pedestrian street with controlled vehicular access • Flexible for festival use • Space for restaurant/brewery patio seating & games b b a C Park Park ISD ADMIN HDR Futur e L a k e M a r i o n G r e e n w a y MIX Despatch C * 46 Lakeville Downtown Development Guide Update Downtown Reinvestment strategies These recommended actions, policies, and procedures will guide commercial development and help to create a destination that sustains businesses and celebrates local heritage. 1. Establish Potential Performance Targets and Metrics »Changes in the number of households / businesses in the Downtown area »Attendance at community events and venues »Employment in Downtown »Property values, rents, and vacancy rates in the Downtown district »Pedestrian counts on key streets in the Downtown area 2. Consider a Special Overlay District for Downtown that Establishes Standards for: »Increased building height and density »Reduced parking ratios »Shared parking »Vertical mixed-use development »Pedestrian-oriented site and building design 3. Utilize Redevelopment and Rehabilitation Finance Tools »Clarify the criteria for the use of Tax Abatement and Tax Increment Financing »Explore a reduction or reallocation of special service district funds to provide for maintenance and ongoing improvements »Explore various opportunities for grant funding, loans, and technical assistance »Minnesota Department of Employment and Economic Development (DEED) »Historic-related grants and incentives (State of Minnesota, Federal government) 4. Integrate Business Incubators & Recruitment »City, DLBA, and Chamber of Commerce to partner with ISD 194 or private landowners for space in the Downtown 5. Use Public Art as an Economic Generator »Install public art pieces and murals with an eye to attracting visitors and families »Encourage businesses to integrate art into their interior spaces and facilities »Encourage temporary or “pop up” public art pieces and performances »Create partnerships and relationships between the City, the DLBA and the Lakeville Area Arts Center and other organizations in the region »Build partnerships with local and regional educational institutions and art schools to involve students and faculty in the development of art projects in Downtown » Explore the creation of a fund or incentives to support temporary art performances during specific times, especially during local festivals »Pursue tenants geared to public art »Encourage developers to engage and work with artists throughout the design and planning for projects »Provide criteria to guide the design and placement of public art in the DowntownRedevelopment an d R e h a b i litation Promote Downtow n B u s i n e sses Business Incubator S p a c e Downtown District S ta n d a r d s 47 4 . IMPLEMENTATION Implementation keys to implementation The Downtown Development Guide Update is intended to be a relevant and useful tool for guiding public and private actions in Downtown. To serve as such a tool, the Guide must provide direction on the steps that are needed to convert ideas into realities. This chapter focuses on the keys to creating and sustaining the Downtown desired by Lakeville. The experience of other cities shows that several factors are important ingredients for the successful implementation of downtown plans: Patience: The vision for Downtown cannot be implemented overnight.The time frame for implementation reflects its evolutionary nature; it looks forward over a period of years. The desired change often requires the patience to wait for the right things to happen, rather than making changes simply to be seen as doing something. commitment: Commitment to this Development Guide and patience go hand-in-hand. This Guide does not simply seek to attract development to Downtown; it also seeks to move Downtown toward a vision for the future. There is a difference. Commitment to the Development Guide means the willingness to actively promote public and private investments that achieve the vision, and to deter developments that do not fit. Not all of these decisions will be easy. 48 Lakeville Downtown Development Guide Update Public-Private Partnerships: Implementation of this Development Guide requires a continuation of the public- private partnerships that have been found in Downtown Lakeville for many years. Both city government and businesses must actively work to achieve the vision for Downtown. Financial Reality: Implementing the Development Guide requires the careful investment of public funds, but the private side of the financial equation must not be overlooked. New development and existing businesses will pay for part of the improvements called for in the Guide. Implementing the Development Guide seeks to balance the investment in public initiatives with the creation of a financial environment that sustains businesses. strategic investments: If financial support for the Development Guide was unlimited, the need for strategic decisions would be less important. With limited funds, though, every expenditure is crucial. It is not possible to undertake immediately all of the initiatives described in this Development Guide. Needs and opportunities not contemplated in this Guide may arise in the future. Every investment must be evaluated for its impact on achieving the vision for the future of Downtown Lakeville. 49 Roles and Responsibilities There is a temptation to give responsibility for implementation of the Downtown Development Guide to the City of Lakeville. Many of the powers and resources needed to undertake the actions described in this Guide are held by the City. The success of Downtown Lakeville cannot be made the sole responsibility of city government. Achieving the vision for Downtown requires on-going collaboration of both public and private stakeholders. This section describes the roles and responsibilities of key parties. Business and Property owners While the City influences the physical setting, Downtown remains a place of private activity. Individual businesses determine the type of goods and services available in Downtown. Individual businesses make decisions about how they operate. Property owners decide how to maintain and improve their buildings. Each of these factors plays a role in the long-term success of Downtown. DLBa The Downtown Lakeville Business Association (DLBA) has been an active participant in this project and previous planning for the Downtown. This involvement should continue into the implementation of the Development Guide. Downtown is a collection of independent businesses. This independence adds to the character and quality of the Downtown environment. This same independence may also be a barrier to beneficial collective actions. The DLBA provides a means of organizing and engaging Downtown businesses. Roles for the DLBA include: »Provide a forum for discussion, consensus and action on issues of importance to the Downtown. »Advocate for City actions needed to undertake redevelopment projects and public improvements. »Provide business-oriented input to public decision making. »Collaborate with the City to attract businesses to Downtown. city council The City Council sets the foundation for implementing this Development Guide consistent with the overall mission of the City. While other bodies (Planning Commission and EDC) play key roles in the implementation process, important redevelopment powers reside solely with the City Council. Among the powers that may be needed to undertake public initiatives in the Downtown are: » Allocate money in the annual budget to capital improvements in Downtown. »Approve the establishment of tax increment financing (TIF) districts. »Levy of special assessments for public improvements. »Issuance of general obligation bonds to finance redevelopment and improvement projects. Implementation 50 Lakeville Downtown Development Guide Update The City Council must be engaged in the vision for Downtown and prepared to take action as needed. Actions by the City Council can enhance the Downtown in other ways. Some examples include: »Community events to make Downtown a focal point »Keep civic institutions concentrated in Downtown »Avoid subsidizing projects that include businesses that should be located in Downtown »Provide staff capacity and resources needed to plan and undertake projects in Downtown »Maintain the suppor t of the Arts Center Planning commission The Planning Commission has the lead responsibility for evaluating the application of land use controls needed to implement the Development Guide. The Planning Commission advises the City Council on issues involving the establishment of and compliance with the Comprehensive Land Use Plan and the zoning, subdivision, and sign ordinances.The Commission also reviews residential, commercial, and industrial development proposals and makes recommendations to the City Council according to the goals and objectives of the comprehensive plan and requirements of the zoning, subdivision, and sign ordinances. The Planning Commission plays a key role in integrating the Development Guide with the update of the Comprehensive Plan. economic Development commission (eDc) The Economic Development Commission (EDC) plays a role in shaping City participation in specific projects and support programs. The EDC assists with the development of a comprehensive plan designed to enhance the quality of, and provide balance to, the business and residential communities. The EDC seeks to encourage business development and promote long-term economic growth in Lakeville. arts center Board The Lakeville Area Arts Center Board will provide advice and guidance on aspects of the plans for Downtown that affect the Arts Center. The Board advises the City Council on matters pertaining to the promotion, development and accessibility of the arts. Its purpose is to promote the Arts Center as a community gathering place that fosters creative expression and offers a variety of artistic and educational opportunities. school District Independent School District 194 is an important stakeholder in Downtown. There are six public schools located within 1.5 miles of Downtown. The Area Learning Center is located in Downtown. If the School District decides to relocate this function, its current site becomes available for redevelopment. Implementation 51 Priority actions Update the comprehensive Plan It is essential that the Downtown Development Guide Update be considered in the Comprehensive Planning process. The “Land Use Controls” section of this chapter discusses options for using the Comprehensive Plan to implement this Guide. Lakeville mall The key to the future of the Lakeville Mall is the Post Office. Action should focus on discussions with the Post Office about long-term plans. The desired outcome would be a plan to relocate the distribution functions and retain the retail functions in Downtown. The plan for postal facilities influences other decision making for the Lakeville Mall. Residential Development The City should encourage residential redevelopment, particularly in the western portion of the study area with a variety of medium and higher density developments. Isolated industrial and single family residential uses within the study area boundary offer the best opportunity for transition to higher density residential uses. A mixture of apartments, condominiums, townhomes or row-houses, and even slab-on grade patio homes could create a broad mix of new construction housing offerings, all of which will help support downtown businesses and bring continuous vitality to the downtown. circulation Iberia Avenue The transportation planning process should be used to conduct a technical evaluation of extending Iberia Avenue to 210th Street. If the Iberia extension improves the local system, then a preliminary engineering study would be desirable. This study would better define the design and cost of the improvements. If the proposed extension is found to be undesirable, then the City must review land use plans and evaluate the implications for future development. North Holyoke Avenue The North Holyoke Avenue area, as well as other single-family neighborhoods surrounding Downtown, should receive special attention in the Comprehensive Plan update. This review should evaluate the need to change land use policies and regulations to encourage the long-term stability of these neighborhoods. Another implementation step is to determine the commitment to additional proposed sidewalk and streetscape improvements. If supported by the City, the next step is to explore timing and funding options. Pedestrian Connections The Development Guide identifies several public initiatives to improve pedestrian connections to Downtown. These initiatives should receive additional attention: »Proposed trail and bike lane improvements should be added to the Parks, Trails and Open Space Plan. »The wayfinding concept should be evaluated for application outside of the Downtown. »The design for a wayfinding system should be established. »Funding for these initiatives should be included in the City’s capital improvements program. 52 Lakeville Downtown Development Guide Update Land Use controls Implementation of the Downtown Development Guide will benefit from a review, assessment, and updating of land use controls relevant to Downtown Lakeville to support the future downtown vision and initiatives. The Downtown Development Guide’s Urban Design Framework envisions downtown redevelopment that benefits from an increased mix of uses, flexibility in building heights and density, flexibility in parking solutions, and pedestrian-oriented design of buildings and sites. A preliminary review of existing land controls relevant to Downtown Lakeville has identified issues and opportunities related to potential inconsistencies, redundancies, and confusion with the various requirements. The primary land use controls in place for the downtown area are part of the city’s zoning ordinance, including but not limited to the following: »zoning districts, »off-street parking requirements, »general yard, lot area and building requirements, »signs, and »fencing/screening/landscaping. Downtown Lakeville is controlled by a wide range of existing zoning districts which include the following: »Commercial »C-CBD, Commercial – Central Business District » C-3, General Commercial District »O-R, Office/Residential Transition District »Industrial »I-CBD, Industrial – Central Business District »Residential »RS-CBD, Residential Single Family – Central Business District »RST-1, Single and Two Family Residential District »RM-1, Medium Density Residential District »RH-1, Multiple Family Residential District »PUD, Planned Unit Development District »P-OS, Public and Open Space District In addition to the zoning ordinance, other land use controls currently applicable to Downtown Lakeville include the Historic Fairfield District of Downtown Lakeville Design Guidelines and the Corridor & Gateway Design Study (referenced in the Fencing/Screening/Landscaping section of the Zoning Ordinance) from 1999. As these two documents are guidelines rather than ordinances, they are not requirements today. It appears that some aspects of these guidelines may be incorporated into the zoning ordinances, such as building heights and outdoor seating areas in the C-CBD, while other aspects are not. This situation can cause confusion and inconsistencies between what is required and what is recommended but not required. Implementation 53 It is recommended that the city consider developing a downtown overlay district that would apply to all properties in the downtown area, or at least the downtown core area, while leaving the base zoning districts in place. An overlay district could address an increased mix of uses, flexibility in building heights and density, flexibility in parking solutions, and pedestrian-oriented design of buildings and sites. Other standards that could be considered include maximum building setbacks, minimum building frontages, and front façade building materials. As part of creating a new downtown overlay district, it is likely that the three CBD districts (C-CBD, RS-CBD, and I-CBD) will also need to be updated to avoid redundancies and inconsistencies. Since these three zoning districts are only applicable to downtown, it may be appropriate to address mixed uses within these base zoning districts rather than the new overlay district; essentially evolving the CBD districts into mixed use districts. In addition, the off-street parking, signs, fencing/screening/landscaping, and general yard, lot area and building zoning sections should be reviewed and updated as necessary to avoid redundancies and inconsistencies, as well as address existing references to the historic downtown district and corridor/gateway design guidelines. Tools for Public investments The vision for Downtown will continue to require investment by the City of Lakeville. Downtown has benefited from City investment in public improvements. The City may find public benefit from further investment in Downtown through the participation in private redevelopment projects. This section highlights the primary finance tools available to support public investments in Downtown, both through public improvements and participation in private redevelopment project. The primary finance tools available to cities have not changed significantly over the years and are limited. This information is not intended to be an exhaustive guide, but rather a high level overview, a starting point, for further investigation. The use of these tools may be subject to requirements not discussed in this section. In addition, the statutes that govern these tools can be changed by the State Legislature. Tax increment Financing Tax increment financing (TIF) is the primary development finance tool available to Minnesota cities (Minnesota Statutes, Sections 469.174 through 469.1794). TIF is simple in concept, but complex in its application. Through tax increment financing, the property taxes created by new development (or redevelopment) are captured and used to finance activities needed to encourage the development. The challenge in using TIF lies with the complex and statutory limitations. These complexities make it impractical to provide a thorough explanation of tax increment financing as part of this plan. Instead, this section highlights the use of TIF as it relates to the implementation of the plan. Past Use of TIF Tax increment financing has played a role in Downtown Lakeville for many years. The initial use of TIF was in 1980 with the establishment of Redevelopment Project No. 1 (Central Business District). It provided the legal framework for the establishment of TIF districts, the collection of tax increment revenues and the expenditure of funds. The boundaries of Redevelopment Project Area No. 1 are geographically defined and 54 Lakeville Downtown Development Guide Update generally encompass the Downtown and the adjacent surrounding commercial and residential areas. Project Area No. 1 defines target area for the use of TIF in and around the Downtown. The City has the authority to modify the boundaries as needed to meet its objectives. The City has made effective past use of tax increment financing as a tool for improving Downtown. An example of a few of the past projects undertaken with TIF include: »Winsor Plaza Senior Housing Project »Main Street Manor Mixed Use Project »Lakeville Senior Center »City-owned parking lot at 207th Street and Holt Avenue »Holyoke Avenue sidewalk between 202nd Street and 205th Street »Downtown Street Reconstruction Project »Lakeville Area Arts Center These projects show the potential importance of TIF as a tool for implementing the Downtown Development Guide. Although changes in State Law have prohibited some of these uses (i.e. governmental buildings), TIF has a variety of useful applications. Future Use of TiF Tax increment financing can be used to finance many actions needed to facilitate redevelopment, including land acquisition, site preparation, parking, and public improvements. In addition, TIF creates a means to borrow money needed to pay for redevelopment costs. The City can issue general obligation bonds to finance certain qualified expenses. These bonds may be supported with tax increments and other legally available revenues. Tax abatement Tax abatement acts like a simpler and less powerful version of tax increment financing. With TIF, the city controls the entire property local property tax revenue from new development. Under the abatement statute (Minnesota Statutes, Sections 469.1812 through 469.1815), the city, county and school district have independent authority to grant tax abatement. Acting alone, the city cannot generate the same amount of revenue from tax abatement as TIF. Nonetheless, tax abatement provides a valuable tool for the downtown initiatives. Certain projects may be of sufficient importance to encourage county and/or school district abatement and achieve additional funding capacity. Uses Tax abatement in Minnesota works more like a rebate than an abatement. The city (and other units abating taxes) adds a tax levy equal to the amount of taxes to be abated. The revenue from the abatement levy can be returned to the property owner (developer) or retained by the city and used to finance development activities. Tax abatement can be used to finance key redevelopment actions in the downtown; such as land acquisition, site preparation and public improvements. Tax abatement is perhaps best suited as an incentive for reinvestment in existing property. While TIF deals with only the value from new development, abatement can apply to both new and existing value of property. This power provides the means to Implementation 55 encourage building rehabilitation and storefront improvements. The City could agree to abate all or part of the city share of taxes to encourage reinvestment tied to the plan for Downtown. The statute grants the authority to issue general obligation bonds supported by the collection of abated taxes. The proceeds of the bonds may be used to pay for (1) public improvements that benefit the property, (2) land acquisition, (3) reimbursement to the property owner for improvements to the property, and (4) the costs of issuing the bonds. Limitations State law places several important limitations on the use of tax abatement: »In any year, the total amount of property taxes abated by a political subdivision under this section may not exceed (1) ten percent of the net tax capacity of the political subdivision for the taxes payable year to which the abatement applies, or (2) $200,000, whichever is greater; »If one political subdivision declines to abate, then the abatement levy can be made for a maximum of 20 years. If the city, county and school district all abate, then the maximum period drops to 15 years; »Taxes cannot be abated for property located within a tax increment financing district. The statutes governing tax abatement should be reviewed to understand other limitations and procedural requirements for tax abatement. special assessments Public improvements are often financed using the power to levy special assessments. The use of special assessments for the majority of public improvements is governed by Minnesota Statutes Chapter 429. Additional authority related to parking facilities comes from Minnesota Statutes, Section 459.14. Uses of Special Assessments A special assessment is a means for benefiting properties to pay for all or part of the costs associated with improvements, and to spread the impact over a period of years. The method of spreading the assessments and the terms of the assessments are set by the City. The primary legal constraints on special assessments are: »The amount of the assessment cannot exceed the benefit the property receives from the improvement. The benefit is measured by the increase in property value. »The method assessment must be uniformly applied to the same type of property. Special assessments can be used to finance all of the public improvements needed to implement the Development Guide. Eligible improvements include streets, sidewalks, street lighting, streetscape, and parking. This authority provides a tool for borrowing money to finance public improvements. Chapter 429 conveys the power to issue general obligation improvement bonds to finance the design and construction of public improvements. Important factors in the use of improvement bonds include: »A minimum of 20% of the cost of the improvement must be assessed against benefited properties. »Beyond the 20% threshold, any other legally available source of municipal revenue may be used to pay debt service on improvement bonds. 56 Lakeville Downtown Development Guide Update »Improvements bonds are not subject to any statutory debt limit. »Improvement bonds may be issued without voter approval. Housing improvement area The City has the power to establish a special taxing district to make improvements in areas of owner-occupied housing (Minnesota Statutes, Sections 428A.11 through 428A.21). This tool may have application both in Downtown and in the surrounding neighborhoods. The housing improvement area is similar in concept to the special service district. It is a special taxing district that can be used to finance a variety of improvements. However, there is an important administrative difference with the housing improvement area: the City has the ability to assign the procedures for imposing “fees” and administering the area to another “authority,” such as a local HRA/EDA or the Dakota County CDA. A housing improvement area is a defined collection of parcels. The area may cover a single redevelopment project or a broader section of the Downtown area. The City has the power to levy a “fee” on the housing units in the area. This fee may work like a property tax or may be spread using another approach determined by the City. The fee can be collected through the property tax system. Uses of Housing Improvement Area The statute allows each city to define the nature of housing improvements. This tool can be used to finance any form of public improvement, including streetscape, parking and trails. A housing improvement area can also be used for private improvements that are part of new or existing housing developments. Limitations for Housing Improvement Area The City does not have the unilateral power to establish a housing improvement area. The process must be initiated by petition of property owners. In addition, the actions to establish the area and impose the fees are subject to veto by the property owners. These potential complications become moot if the area is set up at the beginning of the development process. Typically, there is a single property owner at this stage of the process. In existing neighborhoods, this tool allows residents to take the initiative to improve local parks. The establishment of a new special service district after June 30, 2028, will require enactment of a special law authorizing the establishment. general Property Taxes General property taxes can be used to finance many of the services, improvements, facilities and development activities needed to implement the master plan. Taxes may be levied through the General Fund, to pay debt service on bonds, and as a levy for the EDA or HRA. The ability to use property taxes provides another resource for Downtown. Implementation 57 other city Funds While property taxes are the largest and most obvious source of city revenues, other funds may play a role in implementing the Downtown Development Guide. The use of other city funds should be factored into capital improvements planning and earmarked for downtown. Some potential funding sources include: »Utility revenues. Monies from municipal utilities may be available to certain portions of Downtown improvement projects. »Park dedication fees. New development contributes money (or land) towards the creation of the local park system. Revenues from park dedication may be available to support park and trail improvements. »State aid for roads. The City receives money from the State for the construction and maintenance of roads. These roads must be part of the City’s designated state aid street system. commercial Rehabilitation Loans and grants Through HRA’s and EDA’s, cities have broad powers to facilitate the revitalization of existing buildings. State Law also creates specific statutory authority for loans by cities. The city may establish a program to make loans to finance the rehabilitation of small and medium sized commercial buildings (M.S. Section 469.184). The program can be funded through the issuance of revenue bonds or obligations payable solely from all or a portion of the revenues derived from or other contributions to the program. Other revenues of the city (tax increment or tax abatement proceeds, for instance) could be used to assist the program. other Revenue sources The City should continue to be informed and pay attention to other revenue sources that exist or may become available from Dakota County, the State of Minnesota, or other sources. Downtown redevelopment projects often rely on a myriad and ever changing source of revenues and programs to achieve downtown redevelopment plans. 30 Lakeville Downtown Development Guide Update Urban Design Framework The Urban Design Framework for Downtown Lakeville builds upon the issues and opportunities provided by City staff, stakeholders, and the general public. The following graphic illustrates the proposed redevelopment initiatives that are covered in this chapter. ¯0 200 400 600 800 1,000100Feet Legend City Boundaries Dakota County CDA Trails Existing Trail Planned Trail Existing Alternate Route Planned Alternate Route Sidewalks Wetlands Water Bodies Rivers and Streams Downtown Parks Draft 4/05/2018 Project Boundary JayceePark Quigley Sime Park Sout h C r e e k Lake M a r i o n G r e e n w a y Terrace Park McGuire Middle School John F. Kennedy Elementary School Pione e r Plaza urban D esign framework Holyoke AveHolyoke AveHowland AveHolt Ave206th St 207th St 209th St 210th St Upper 209th St 208th St Upper 2 0 8 th St 206th St 205th St     Long-term Residential Projects • Coordinate with future Iberia Ave extension • Reliant on existing industry transitioning to Airlake industrial area or elsewhere Gateway Gateway MDR Despatch HDR MDR MDR MD/HDRHDR MDR MDR MIX MIX MIX MIX COMM. COMM. COMM. MIX MDR MDR MD/HDR Gateway Lake Marion Greenway Gateway & Downtown Route Potential Future Structured Parking Ibe r ia Avenue Ex tens ion (can be phased ) Iberia Avenue Extension (can be phased) Use Jaycee Park for stormwater management when Iberia Avenue is extended Mixed-use Development • Could be phased and/or include redevelopment of some parts of existing building • Re-stripe parking lot, adding landscaping and/or patio spaces along storefront entrances Expanded Parking/Residential Protect surrounding residential neighborhoods using: • Streetscape enhancements • Land use transitions • Traffic controls • Parking restricitons • Landscaping and screening Long-term “Cottage Commercial” opportunities along Holyoke Ave from 207th to CR 50 Art Center Mixed-use Housing • Artists-in-Residence Housing • Studio Space • Display Space Alternative Learning Center Options: • Remain ISD Learning Center • City purchases for Arts Center Expansion • Demo and expand as flexible parking/ Festival Space/Housing Entertainment District Reorganize commercial parcels around re-oriented Upper 208th Street • Pedestrian street with controlled vehicular access • Flexible for festival use • Space for restaurant/brewery outdoor seating & gatherings/games/events Arts District Reorganize commercial parcels around re-oriented Upper 208th Street • Pedestrian street with controlled vehicular access • Flexible for festival use • Space for restaurant/brewery patio seating & games b b a C Park Park ISD ADMIN HDR Futur e L a k e M a r i o n G r e e n w a y MIX Despatch C Figure 3.1 | Urban Design Framework