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Planning CommissionMeetingMinutes, July19, 2018 Page6
8. RoseRidge
ChairKaluzaopened thepublic hearingtoconsidertheapplicationofWinklerLand
Co. LLC forthefollowing, generallylocated eastofDoddBoulevard (CSAH9), northrdof183Street, andimmediately northoftheKingParkAthletic Complex: A.
Comprehensive Plan amendmenttore-guidetheproperty from Low/Medium Density
ResidentialtoMedium DensityResidentialandOffice/ResidentialTransition; B.
ZoningMapamendment torezonethepropertyfrom RST-2, Single andTwoFamily
ResidentialDistrict toRM-1, Medium Density ResidentialDistrictandO-R,
Office/Residential TransitionDistrict.
JohnAnderson, representing WinklerLandCompany, andMr. Winklerwere in
attendance at tonight’smeeting. Mr. Anderson statedthattheyarelooking toguide
thelandsouth ofthecollector road (Hyde ParkAvenue) to Office/Residential
Transition andconstructan officebuilding andadaycare facilityon thesouthsideof
theroad. Onthe northsidetheyare proposing tore-guideandrezonetheproperty
from lowdensitytomedium densityandconstruct 14rowtownhouses. Mr. Anderson
feltthatwiththe parkusetothesouth, theofficebuilding would beagoodtransition.
PlanningConsultant DanielLichtpresentedthe planning report. Mr. Lichtstatedthat
Winkler LandCo, LLChassubmitted aconceptplanfordevelopment oflandlocated
eastofDoddBoulevard (CSAH9) andnorth ofKingParktoinclude anoffice building,
daycarefacility and14rowtownhouse dwelling unitswithinthreebuildings. The
subjectsite doesnotallow fordevelopment oftheusesshownontheconcept plan
withtheexception ofthedaycare facility, whichwouldbeallowedbyconditional use
permit.
Mr. Licht explained thatthedeveloper hadrequested thatthe subjectsite beincluded
intheMUSAand guidedtoallowtheproposed useson thedraft2040LandUsePlan,
butthisrequestwasnotagreed tobythePlanning CommissionorCityCouncil at
separateworksessions. Thedeveloperisrequesting approval ofanamendment to
the2030Land UsePlanandZoningMapto allow forsubsequentdevelopmentstage
zoningandsubdivisionapplicationsforthe usesshownonthe conceptplan.
Mr. Lichtreviewedtheexisting conditionsandaccess tothesite, which arereviewed
indetail intheJuly11, 2018 planningreport.
Mr. Lichtstated thatthe2010MUSA Serviceability Study broughtthesubject siteinto
theMUSAwithextension ofsewer andwaterutilities tooccurinaccordance with the
orderly expansionofdevelopment fromtheeast. Iftheserviceabilityofthesubject
siteisverified, developmentofthesubject sitewithurbanusesas guided bytheLand
UsePlan couldbe allowedtoproceed.
Mr. Licht indicatedthatthe2030LandUsePlanguidesthesubject siteforfutureLow-
to-Medium DensityResidentialuses. Thelanduse categoryallowsfordevelopment
ofsingle family, detached townhouse, andtwo-family dwellings. Thelandusesshown
ontheconcept planarenotallowedwithintheLow-to-Medium Density Residential
landusedesignation.
Planning CommissionMeetingMinutes, July19, 2018 Page7
Mr. Lichtreviewedthe2030LandUsePlan andtheconceptsthatitisbasedupon,
which aredescribedindetailintheJuly11, 2018planning report.
Mr. Lichtstatedthatstaffrecommendsthat approvaloftherequestedComprehensive
Plan belimitedto guiding theportionofthesubjectsitesouthof thefutureminor
collector streetforOffice-ResidentialTransition landuseandamending theZoning
Mapto rezone saidareatoO-R District. FindingsofFactdated July19, 2018thatare
consistentwiththisrecommendation havebeenincluded forthePlanning
Commission’sconsideration.
ChairKaluzaopenedthehearing tothepublicforcomment.
Thefollowing peoplespokeatthePublicHearing:
BrandonKrech, 17970Hydra Court
David Mills, 17954HydraCourt
Nathan DuBois, 17998HydeParkAvenue
MatthewHall, 18035HydraCircle
CurtLockman, 17961Hydra Court
Their concerns were:
Lighting fromtheofficebuildingandhowitwillaffecttheneighborhood
Increased trafficthroughtheir neighborhood
Temporaryliftstationandhowlongitwillexist
Theproperty ascurrentlyguidedandzonedisappropriate
TherequestisnotconsistentwithwhattheCityhasplannedforthearea
Theelevationofthesubjectpropertyissignificantlyhigher whichwouldputthe
officebuildingevenhigherthantheirhomes
Negativeimpactonpropertyvalues
Theydidtheirresearchregarding surrounding zoningpriortomovingintotheir
neighborhoodandnowitmay bechanged
Motion wasmade byDrotning, seconded byReuverstoclosethepublichearing
at7:05p.m.
Voicevotewastakenonthemotion. Ayes - unanimous
ChairKaluzaaskedforcomments fromthePlanning Commission. Discussion points
included:
A lighting planwouldberequiredprior toconstruction oftheofficebuilding
andstaff would review theplanforcompliancewith theZoning Ordinance.
ChairKaluza asked Mr. Lichttoexplain whenthetemporary liftstation
would beremoved. Mr. Lichtshowedthe2010 MUSA serviceability map
andexplainedwheresanitary sewerwould becomingtoservethis property.
Planning CommissionMeetingMinutes, July19, 2018 Page8
Heindicated thatcapacitywouldneedtobeverifiedpriortotheremovalof
thetemporarylift station.
ThePlanningCommission agreed thattheydiscussed this requestabout a
month agoat a2040Comprehensive Plan meetingand theyindicated they
didnotsupportMr. Winkler’srequestat thattime. Theyfeltitwaspremature
thenandtheystilldo. Commissioner DrotningaskedMr. Winklerto confirm
this, whichMr. Winklerdid.
CommissionersWitteandReuvers commented thatthisconcept layout
does notfitinthislocation.
Mr. Moreyclarifiedthat whenthePlanningCommission considered Mr.
Winkler’srequestpreviously it wasatawork sessiontoreviewthedraft
2040LandUsePlan. SeveralpropertyownersmadelanduseandMUSA
requests aspartof theComprehensive Planupdateprocess. Ata
subsequentwork session, theCity Councilalso indicatedsupport for
low/mediumdensity landuses onMr. Winkler’sproperty. Mr. Winkler
decided toproceed withhisapplicationsdespite thePlanningCommission
andCity Councilworksessiondiscussions.
Commissioner Swensonaddressed thetrafficcontrolissues. Heindicated
thatregardless oftheuse oftheproperty, it has already been determined
where theintersection willbe, atHyde ParkAvenue. Hereminded the
residents thatDoddBoulevard isaCountyroad. CommissionerSwenson
alsoindicated thatthe conceptplan presented tonight is nota formalplat
application.
ThePlanningCommission thankedtheresidents for theirinputat tonight’s
meeting. ChairKaluza explained to theaudience thatthePlanning
Commission willmakearecommendation totheCityCouncil attonight’s
meeting. Heencouragedtheresidents toattendtheCityCouncilmeeting
wherethefinaldecision willbemadeonMr. Winkler’sapplications.
Motionwasmade byReuvers, seconded by Drotning torecommend toCity
Councilapprovalof the WinklerLandCo. Comprehensive Planamendment and
Zoning Mapamendment.
Ayes: 0
Nays: Reuvers, Witte, Drotning, Swenson, Einck, Kaluza
Motion was madebyReuvers, seconded bySwensontodirectCitystaffto prepare
Findings ofFactconsistentwiththePlanningCommission’srecommendation ofdenial
oftheWinklerLandCo. Comprehensive Plan and ZoningMapamendments.
Ayes: Witte, Drotning, Swenson Einck, Kaluza, Reuvers
Nays: 0
Mr. Morey askedthe audience toe-mailCity Planning Department staffso that they
canbe informed of thedateoftheCityCouncil meetingifthey areinterestedin
attending.
3601 Thurston Avenue
Anoka, MN 55303
763.231.5840
TPC@PlanningCo.com
1
MEMORANDUM
TO: Daryl Morey
FROM: D. Daniel Licht, AICP
DATE: 11 July 2018
RE: Lakeville – Winkler (Dodd Blvd); Comprehensive Plan/Zoning Map Amendments
TPC FILE: 135.01
BACKGROUND
Winkler Land Co, LLC owns an 11.56 acre property located east of Dodd Boulevard (CSAH 9) and
north of King Park. The developer has submitted a concept plan for development of the subject
site with a 30,000 square foot office building, a 10,800 square foot daycare facility, and 14 row
townhouse dwelling units within three buildings. The subject site is guided by the 2030 Land
Use Plan for Low-to-Medium Density Residential uses and zoned RST-2 District, which does not
allow for development of the uses shown on the concept plan with the exception of the
daycare facility, which would be allowed by conditional use permit .
The developer had requested that the subject site be included in the MUSA and guided to allow
the proposed uses on the draft 2040 Land Use Plan, but this request was not agreed to by the
Planning Commission or City Council. The developer is requesting approval of amendment to
the 2030 Land Use Plan and Zoning Map to allow for subsequent development stage zoning and
subdivision applications for the uses shown on the concept plan. A public hearing to consider
the Comprehensive Plan and Zoning Map amendments has been noticed for the Planning
Commission meeting on 19 July 2018.
Exhibits:
A. Site location map
B. Comprehensive Plan Map
C. Rezoning Map
D. 2010 MUSA Serviceability Map
E. Concept Plans dated 06/12/18 (3 pages)
2
ANALYSIS
Existing Conditions. The subject site is currently undeveloped. The table below summarizes
existing and planned land uses surrounding the subject site:
Direction Land Use Plan Zoning Map Existing Use
South Parks P/OS District King Park Community Playfield
West L/MDR
Public/Quasi-Public
Office Park
RST-2 District
P/OS District
PUD District
Single family dwellings
Police Department
Lifetime Fitness
North L/MDR RS-4 District Single family dwellings
East L/MDR RS-4 District Undeveloped
The subject site is within a central portion of the City guided to develop primarily with
residential uses. There is a unique concentration of more intense public and quasi-public
facilities in the area surrounding the Dodd Boulevard (CSAH 9) and 185 th Street (CSAH 60)
intersection that includes the City water treatment facility, Lifetime Fitness, the Police
Department, Century Middle School, and King Park community playfield.
The subject site abuts the north side of King Park community playfield. The community playfield
classification defined by the 2015 Parks, Trails, and Open Space Plan is for parks developed with
active recreation facilities that serve the entire community and are to be the most intensively
used facilities within the City’s park system. King Park is developed with nine baseball/softball
fields, a concession stand and picnic shelter, and 198 off -street parking stalls. All of the fields
have lighting to allow late-evening play.
Access. The subject site abuts Dodd Boulevard (CSAH 9), which is designated by the 2008
Transportation Plan as an A-Minor Expander roadway. The concept plan illustrates that the
intersection of Hyde Park Avenue to Dodd Boulevard (CSAH 9) accessing the subject site would
be a full intersection. This intersection is approximately 1,100 feet from the existing
intersection of Dodd Boulevard (CSAH 9) and 183rd Street to the south, which provides access to
the Police Department and King Park. The proposed intersection is also approximately 2,500
feet from the intersection of Dodd Boulevard (CSAH 9) and Highview Avenue to the northeast.
Potential access limitations for the intersection of Dodd Boulevard (CSAH 9) and Hyde Park
Avenue would be subject to review by the City Engineer and Dakota County as part of a
preliminary plat application.
Future Hyde Park Avenue east of Dodd Boulevard (CSAH 9), which would be designated as a
numbered street consistent with the Dakota County grid, is designated by the Transportation
Plan as a minor collector street connecting Dodd Boulevard (CSAH 9) and Highview Avenue. The
minor collector designation of the roadway indicates construction of a street section with
sufficient capacity to accommodate the traffic that would be generated by the proposed office
and daycare uses shown on the concept plan and the traffic that would be estimated for the
planned Low-to-Medium Density Residential Land uses. The minor collector street would also
3
serve as a transition between the proposed Office-Residential Transition and residential land
uses illustrated on the concept plan. The proposed street shown on the concept plan extending
north of future Hyde Park Avenue to the east property line would be constructed as a local
public street for access to the residential uses.
MUSA. The 2010 MUSA Serviceability Study brought the subject site into the MUSA with
extension of sewer (and water) utilities to occur in accordance with the orderly expansion of
development from the east. The City’s Comprehensive Sewer Plan guides this property to be
served by sanitary sewer that is currently not extended to the property. The developer states
that when the Rose Creek plat to the west of Dodd Boulevard was developed by them, the
plans for a temporary sewer lift station constructed to serve the plat was designed to also
provide service to the subject site. Serviceability of the subject site from the existing temporary
lift station would be subject to review by the City Engineer as part of a preliminary plat
application. If the serviceability of the subject site is verified, development of the subject site
with urban uses as guided by the Land Use Plan could be allowed to proceed. The utility plan for
development of the subject site would need to provide for the area to be connected to gravity
sewer when it is extended from the east to allow for removal of the temporary lift station and
more efficient operation of the sewer system. Development of the subject site would be
consistent with the policy adopted with the 2008 Comprehensive Land Use Plan to permit
growth on a phased basis to provide for a logical extension of urban development and related
community services in a fiscally responsible manner.
Land Use. The 2030 Land Use Plan guides the subject site for future Low-to-Medium Density
Residential uses. This land use category allows for development of single family, detached
townhouse, and two-family dwellings with a density of 3.0 to 5.0 dwelling units per acre. The
land uses shown on the concept plan are not allowed within the Low-to-Medium Density
Residential land use designation.
The land uses guided by the 2030 Land Use Plan are based on several concepts. First, intensity
of development should lessen as distance from activity centers decreases. This concept applies
to the area of the subject site as decreasing land use intensity outward from the intersection of
Dodd Boulevard (CSAH 9) and 185th Street (CSAH 60). A second tenet of the land use plan is that
commercial land uses are to be clustered in central locations that provide for retail, service
businesses, and office uses accessible from major transportation corridors. The goal of this
concept is to provide convenient access to a broad range of goods and services with greater
cumulative market attraction and opportunities for business interchange. The area of the
subject site has not been established as a commercial node within the community, although
there are uses in the area including the Police Department, Lifetime Fitness, and Century
Middle School that serve the entire community. A third principle of the land use plan applicable
to the subject site is that areas outside of defined activity centers are to be guided to develop
as cohesive residential neighborhoods, which is reflected by the current 2030 Land Use Plan
designation of the subject site for Low-to-Medium Density Residential uses compatible with
planned residential development to the east.
4
The developer is requesting that the area south of the extension of future Hyde Park Avenue be
designated for Office Residential Transition to allow for the proposed office building and
daycare facility. There is opportunity within the City to develop the proposed office building
within the existing Commercial, Office Park, or Light Industrial/Warehouse land uses designated
by the 2030 Land Use Plan. However, the Office Residential Transition land use category is
intended to be designated at limited locations within Lakeville to provide for an orderly
transition from intense activity centers to residential neighborhoods. Given the potential traffic
impacts from Dodd Boulevard and the existing and potential intensity of King Park as a
community playfield, an Office Residential Transition land use as illustrated on the concept plan
would be desirable in this location as a buffer to planned residential uses to the north and east.
Amending the 2030 Land Use Plan to designate the subject site for Office Residential Transition
land uses and amending the Zoning Map to rezone the subject site to O-R, Office-Residential
Transition District is consistent with the objectives of the 2008 Comprehensive Plan.
The concept plan proposes that the area north of the extension of future Hyde Park Avenue be
guided for Medium Density Residential land uses and rezoned to RM-1 District to allow for
development of row townhouses as illustrated on the concept plan. The proposed row
townhouses would occupy almost three acres of the subject site and be an isolated pocket of
attached housing abutting planned single family lots to the east an d existing single family lots to
the west across Dodd Boulevard. The 2030 Land Use Plan does not include townhouse uses
within the area of the Dodd Boulevard (CSAH 9) and 185th Street (CSAH 60) intersection to
maintain single family development as the primary residential form within the central area of
Lakeville. Furthermore, the street accessing the proposed row townhouses north of future
Hyde Park Avenue would extend to access planned single family lot subdivision of the property
to the east of the subject site. Site design principles suggest that the land uses fronting onto a
given street be consistent for a harmonious development pattern. The proposed amendment
of the 2030 Land Use Plan to guide Medium Density Residential land uses and Zoning Map
amendment rezoning to RM-1 District is not consistent with the goals and policies of the 2008
Comprehensive Land Use Plan.
Concept Plan. The developer has submitted a concept plan to illustrate their proposed
development of the subject site with an office building, daycare facility, and row townhouses.
Our review of the current application is limited to the land use and zoning designation elements
of the proposed development and no comment is made regarding the conformance of the
proposed uses with the performance standards and requirements of the Zoning Ordinance and
Subdivision Ordinance. Upon a decision by the City Council regarding the Comprehensive Plan
amendment and Zoning Map amendment applications, the developer would be required to
submit applications for (but not limited to) the following:
▪ Conditional use permit to allow a daycare facility within an O-R District.
▪ Conditional use permit for multiple principal structures upon a lot (row townhouse)
▪ Site and building plan review.
▪ Preliminary plat.
▪ Final plat.
5
CONCLUSION
Land use development in Lakeville is to reflect community priorities as set forth by the
Comprehensive Plan. Once established, land use designations and related zoning classifications
are only to be changed when they will promote the goals and policies of the 2008
Comprehensive Land Use Plan. To this end, requested land use changes must be evaluated in
relation to surrounding land uses, transportation accessibility, utility availability, and
consistency with the goals, policies and plans of the 2008 Comprehensive Land Use Plan.
The proposed amendment of the 2030 Land Use Plan and corresponding Zoning Map
amendment to allow for development of an office building and daycare facility is consistent
with the character of the area surrounding the Dodd Boulevard (CSAH 9) and 185th Street (CSAH
60) intersection and will provide a desirable transition to less intensive residential land uses to
the north and east of King Park. The proposed amendment of the 2030 Land Use Plan and
corresponding Zoning Map amendment to allow development of row townhouses in not
consistent with the planned character of the area surrounding the subject site and would result
in a poor transition between residential neighborhoods in terms of land use and site design.
City staff recommends that approval of the requested Comprehensive Plan amendment be
limited to guiding the portion of the subject site south of the future minor collector street for
Office-Residential Transition land use and amending the Zoning Map to rezone said area to O-R
District. Draft findings of fact consistent with this recommendation have been drafted for
consideration by the Planning Commission and are included with this memo.
c. Justin Miller, City Administrator
Zachary Johnson, City Engineer
John Hennen, Parks and Recreation Director
Andrea McDowell-Poehler, City Attorney
Dakota County GIS
±
City of LakevilleRose RidgeSite Location MapEXHIBIT A
185TH ST (CSAH 60)DO DDBLVD(CSAH9)183RDST HYDEP
A
R
K
AVE
IPAVA AVEHIGHVIEW AVECentury
MS
Water Treatment
Facility
King Park
Athletic Complex
(Lit Fields)
Future 185th St (CSAH 60)
Future Minor
Collector street
LifetimeFitnessPolice
Station
Project Site
±
P
LDR
L/MDR
PAQP
OP
D O D D BLVD (CSA H 9)HYDEPAR
K
AV
E
LDR
LDR
183R
DST
L/MDR
L/MDR
LDR
OP
MDR5.2 ac.
O/RT5.3 ac.
L/MDR
LDR
LDR
L/MDR
L/MDRHYDEPAR
K
AV
E
PAQP
P
D O D D BLVD (CSA H 9)183RDST
L/MDR
Proposed Land Use
City of Lakeville
Rose Ridge
Existing 2030
Land Use
EXHIBIT B
RD
RD
±
P/OS
RS-3
RS-4
P/OS
PUD
D O D D BLVD (CSA H 9)HYDEPAR
K
AV
E
RS-2
RS-4
183R
DST
RST-2
RS-4
RS-4
PUD
RM-15.2 ac.
O-R5.3 ac.
Proposed Zoning
PUD
RS-3
RS-2
RST-2
RST-2HYDEPAR
K
AV
E
P/OS
P/OS
D O D D BLVD (CSA H 9)183RDST
PUD
City of Lakeville
Rose Ridge
Existing Zoning
EXHIBIT C
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ISD194ISD196ISD192ISD192ISD192CCCCCSFSFSFSFSFSFSFSFSFSFSFSFSF SFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSF SFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFSFMFMFMFMFMFMFMFMFMFMFMFMFMFMFMFMFMFMFMFIIIOPOPOPOPOPOPOPOPOPOPOPOPOPOPOPOPOPDODD BLVDCEDAR AVE160TH ST W185TH ST WIPAVA AVE215TH ST W205TH ST WHIGHVIEW AVEHOLYOKE AVE170TH ST WKENWOOD TRL202ND ST WPILOT KNOB RD210TH ST W162ND ST WLAKEVILLE BLVDKENRICK AVEJUNIPER WAY175TH ST WISLETON WAYICALEE PATHFLAGSTAFF AVE WIP A V A A V E 202ND ST WIPAVA AVEK E N W O O D T R L 210TH ST WK E N W O O D T R L
210TH ST W175TH ST W§¨¦35§¨¦35456760456750456750!(23!(9!(70!(58!(64!(31!(5!(46!(70!(5.1010.5 MilesDate: 2/6/2013LEGEND77Existing Sanitary Main77Proposed Trunk SewerExisting Water MainsSanitary Sewer SubDistrictsBoth sewer and water are available at the property boundary (409.3ac)Both sewer and water are available within ¼ mile or less from the property boundary (274.3ac)Sewer or water is more than ¼ mile from the property boundary (1096.2ac)102.4 306.9 0.058.5 212.1 3.6285.6 680.5 130.0 School District 192 194 196The 2010 MUSA Serviceability Map with the following 2010 MUSA Development Policy provides the City Council, Planning Commission, and staff with a guide in evaluating individual development requests and its potential impact on City services, infrastructure and finances. This criteria will be used when considering and evaluating individual development proposals for properties within the 2010 MUSA: 2010 MUSA Development Policy 1. Are public sanitary sewer and water utilities in place adjacent to the site and do the existing downstream facilities have the capacity to serve the site? 2. Will allowing the property into the current MUSA unduly burden the City or adjacent propertiesdue to development related costs or long term maintenance (i.e. trunk oversizing and/or regional ponding credits, collector roadway financing, park development)? 3. Does the development of the property provide for or include a public purpose (i.e. major streetconnections, community park and recreation facilities, regional stormwater drainage basins or other municipal needs)? 4. Is the proposed development compatible with present land uses and future land uses guided bythe Comprehensive Land Use Plan within the area? 2010 MUSAServiceability Map