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Contents
Chapter 1: Introduction.................................. 1
Chapter 2: A Vision for Elk River..................... 5
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Elk
River Chapter 3: Using the Plan...............................9
Chapter 4: Community Context....................... 19
Chapter 5: Land Use......................................31
Chapter 6: Transportation ..............................45
Chapter 7: Housing .......................................69
Chapter 8: Utilities ........................................85
Chapter 9: Environmental Resources................95
Chapter 10: Parks, Trails, and Open Space....... 103
� L? �. Chapter 11 : Community Facilities.................... 111
- Chapter 12: Community Development.............. 123
Chapter 13: Community Image ...................... 131
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Adopted: 2014 701 Xenia Avenue South,Suite 300
Q Minneapolis,MN 55416
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Acknowledgements
We would like to thank everyone who participated in the visioning and creation
of this Comprehensive Plan. Your comments, insights, and local knowledge
of the community are invaluable assets in the planning process. Not included
in this list, but nonetheless critical to the success of this planning effort, were
many others who provided background information, attended planning meetings
and open houses, or contributed by other means.
A special thanks to:
Citizen Advisory Project Advisory City Council
Committee (CAC) Committee (PAC) John J. Dietz, Mayor
Paul Motin, City Council Calvin Portner,City Administrator Stewart Wilson,Ward 1
Barbara Burandt,City Council Jeremy Barnhart,Community Matt Westgaard,Ward 2
Mark Konietzko, Planning Operations Development Barbara Burandt,Ward 3
Commission Deputy Director
Paul Motin,Ward 4
Gunther Sagan,Parks and Chris Leeseberg,Park
Recreation Commission PlannerlPlanner
Planning
Larry Toth, Housing and Zack Carlton, Planner I Commission
Redevelopment Authority Justin Femrite,City Engineer Dana Anderson,Chair
Bryan Provo,Economic Michael Hecker, Parks and Mark Konietzko
Development Authority Recreation Director Jeremy Johnson
Joshua Fox,Historic Preservation Brian Beeman, Economic Eric Johnson
John Setala,Energy Development Director Mike Keefe
City Commission Suzanne Fischer, Mike Keller
Debbi Ryberg,Elk River Area Community Operations and
Development Director Chad Westberg
Chamber of Commerce p
Bruce Anderson, Gary Leirmoe,Wastewater
Sherburne County Treatment Chief Operator
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Purpose of the Plan
r Elk River's Comprehensive Plan is a guide to help the City preserve
what it values, enhance what it feels is needed to be improved upon,
and continue to create what it desires for the future. The Plan is a tool
that the community uses to guide its future growth, redevelopment
and improvement efforts. It provides a foundation upon which the
k , community will construct its future. More specifically, it offers a
framework for public action that helps the City make the best and most
appropriate use of its resources by establishing policies that are used to
guide the decision-making process.
Chapter 1: Introduction / 1
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The Comprehensive Plan brings together various elements of Elk River into
a comprehensive long range plan. The Plan is a guiding document that will
periodically be reviewed, amended and updated.
City staff, the City Council, Boards, Commissions and others associated with
the City will use the Plan to assist them in many ways. It will provide guidance
for making informed decisions regarding development, redevelopment and
infrastructure improvements, acquire and use public land, assist in budgeting
capital improvements, establish regulatory tools and necessary changes, and
facilitate the communication of the City's vision to residents, property owners,
and others.
Property owners and residents will use the Plan to assist them with determining
potential property use, understand possible land use changes that may occur in
the surrounding area, understand future infrastructure improvements, and make
property improvements based on the City's vision for property in the area.
Business owners, developers, and entrepreneurs will use the plan to guide them
in acquiring property and coordinating development plans with existing and
future City infrastructure. It will also assist in helping to coordinate issues of
mutual interest, including coordinating the regional systems like transportation
and water resources.
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' Organization of the Plan
The 2013 Comprehensive Plan builds on the City's 2004 Comprehensive Plan. While the general guiding principles
of the two plans are similar, this Plan emphasizes the City's desire to maintain (and enhance) its existing growth
patterns and character. The content and organization of this Plan are as follows:
Chapter 1: Introduction. This chapter describes the Chapter 8: Utilities. Community growth and
purpose of the Plan, how it is intended to be used, how development involves a variety of municipal Utilities.
it was developed and how it is organized. This chapter focuses on inventorying, maintaining,
sustaining, and enhancing the municipal utility system
Chapter 2: Vision. The chapter on vision provides within the City.
a snapshot of what the members of the community
would like the future of Elk River to look and feel like. Chapter 9: Parks. Parks provide places for the
The Vision Statement provides the basic framework for community to gather and play and also provide a
planning and decision-making. means for protecting natural features, open spaces,
and other aspects of Elk River's natural heritage.
Chapter 3: Implementation. The Comprehensive A system of trails connects the community and
Plan is the most important tool for guiding the allows for safe movement outside of vehicle traffic.
development of Elk River, but the plans and This chapter provides a summary of the existing
implementation strategies contained within each park system and outlines strategies for future
chapter can only help achieve the community's vision improvements. The City is in the process of updating
for the future if the Plan is used. The purpose of this a standalone Parks, Trails and Open Space Plan which
section is to provide guidance on using the Plan and should be used for more detailed information.
creates a set of guidelines to do so.
Chapter 10: Community Facilities. This chapter
Chapter 4: Community Content. This chapter provides describes existing and proposed community facilities
general background on the community and its people. and services in the city. This chapter also summarizes
Chapter 5: Land Use. In order to realize the Vision the key issues and opportunities relating to
for the future of Elk River, this chapter sets the intergovernmental cooperation and it provides a plan
foundation and guides the use of land. The Land for joint efforts in the future.
Use chapter considers broad community patterns Chapter 11: Environmental Resources. Elk River is
and questions such as how much growth should be blessed with a variety of natural and environmental
anticipated and accommodated and where should the resources. This chapter examines their impact
growth occur. It also contemplates how land uses and importance to the future development of the
relate to each other and to the natural environment. community.
Chapter 6: Transportation. This chapter provides Chapter 12: Community Development. This chapter
an inventory and analysis of the regional and local of the Plan discusses roles and initiatives for the City
transportation system and it provides a plan to to take in attempting to meet specific development and
address transportation issue and opportunities. redevelopment needs of the community.
Chapter 7.Housing. While many aspects of housing Chapter 13: Community Image. This chapter
development will be controlled by market forces, explores approaches to create a consistent image for
there are aspects of the Housing chapter that focus Elk River as it continues to grow, development and
on the type of housing envisioned for the City of Elk redevelop, including general appearance guidelines
River. These aspects include, but are not limited for the downtown area, major roadway corridors and
to, affordability, housing patterns, and housing type community gateways.
choices. The Housing chapter provides an inventory and
analysis of existing housing conditions and it provides a
plan to address housing issues and opportunities.
Chapter 1: Introduction / 3
Elk River comprehensive Plan
Planning Process
This Comprehensive Plan updates the 2004 Comprehensive Plan for the City of Elk
River, for which the City gratefully acknowledges the efforts of those who participated
in the development of the 2004 Plan.
Many stakeholders were involved in the development of the 2013 Comprehensive Plan
Update including the following:
Project Advisory Committee (PAC): The Project
Advisory Committee (PAC) was made up of
members of the City staff and the WSB Team. The
PAC met on a bi-monthly basis throughout the -
planning process to provide pertinent backgrounds
information and data, review and provide ,
feedback on all technical memos and draft chapter
language, and assisted in the development of the
Comprehensive Plan.
Citizen Advisory Committee (CAC): The Citizens Social Media and Community Outreach:
Advisory Committee (CAC) was comprised Understanding the importance of stakeholder
of a broad-based citizen group that consisted engagement and community buy-in of the Plan,
of members from the City Council, Planning the City utilized a variety of social media and
Commission, Parks and Recreation Commission, community outreach techniques.
Heritage Preservation Commission, Energy City Project Website: The City hosted a project
Commission, Economic Development Authority
website which provided meeting agendas,
(EDA), Housing and Redevelopment Authority
draft plans and meeting minutes for public
(HRA), Elk River Area Chamber of Commerce,
review and comment throughout the process.
Downtown Rivers Edge Business Association,
and Sherburne County. The CAC met on a List Serve System: Updates and
monthly basis throughout the planning process to announcements were send out using the
provide direction and feedback on the visioning City's list serve system.
process, draft chapter language and assist in the Newsletters: The City's newsletter was used
development of the Comprehensive Plan. to communicate key stakeholder events and
Community Open House: The City held two (2) the project throughout the planning process.
community open houses to seek public input on Facebook Page: Announcements of the
the draft Comprehensive Plan. The first open Community House and y en p opportunities
house was to explain the comprehensive planning for the public to comment and engage in the
process and gather feedback on issues, concerns, planning process was posted onto the City's
and opportunities within the city. The second Facebook Page.
open house provided up to-date Plan information
including future land use plans, visions, and Cable TV: Advertisements announcing the
implementation strategies. Community Open Houses and encouraging
participation in the process was broadcasted
• Community Education. A visioning session was using ERtV Channel 12.
held with a group of students (K-5) through District
728 Community Education Edventures Club. Public Hearing and City Council Approval:
Students graphically communicated what they like, The Planning Commission held a public hearing on
what they don't like, and what they want in the , 2014 and recommended approval of
City of Elk River. the Comprehensive Plan. On 2014
the City Council approved and formally adopted the
Comprehensive Plan.
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Importance of a Vision
According to an old story, two stonecutters were asked what they
were doing. The first said, "I'm cutting this stone into blocks." The
second replied, "I'm on a team that is building a cathedral."
This story as first told in the City's 2004 Comprehensive Plan illustrates
the role of a vision in managing the growth and development. Without
this vision, development management works much like the first
stonecutter with new pieces added without a clear picture of what is
being built. The comprehensive planning process is a tool used to guide
the future growth and development of Elk River. The cornerstone of this
process is the Vision Statement, which provides the larger picture of
the "cathedral" that Elk River seeks to become by offering a broad and
enduring view of Elk River. Each development or redevelopment must
help to build that vision, not just fit cleanly with the next "stone block."
Chapter 2: A Vision for Elk River / 5
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Furthermore, the Vision serves several purposes including:
The Vision serves as a tool for evaluating The Vision provides an anchor in times of conflict
proposals, projects, ideas and new directions. How and change — a way of finding common ground and
does this action fit with the Vision? shared values.
Creating a Vision Statement allows a shared The Vision encourages imagination, recognizing that
understanding of community desires for the future. the direction it sets can be the reality of the future.
The Vision encourages the community to consider The Vision creates energy and enthusiasm for
the future, even a future that is twenty years maintaining the commitment to the Comprehensive
distant. Plan.
Overarching Vision Statement
Elk River's Vision Statement, as expressed below, and adopted in 2010, captures the
"big-picture" aspirations of the City. Specific visions for each of the elements of the
Comprehensive Plan are provided in each of the other chapters of this Plan, along with specific
goals and objectives on how to attain those visions.
Elk River Vision Statement
"t Abounding in natural beauty, Elk River is a vibrant, historic rivertown that promotes an
active lifestyle in an innovative and involved community offering unlimited opportunities.
Furthermore, the future of Elk River consists of several themes, including:
1. Maintain a distinct identity for Elk River
Elk River will keep an identity and character all its own.
Natural, cultural and historical resources of the community are essential ingredients of Elk River's
identity.
Elk River seeks to grow in a manner that preserves the qualities of its "small town" heritage, including
providing community space, maintaining and creating connectivity throughout the city, providing
opportunities for social connection and interaction, and having destination locations such as downtown.
2. Create and Maintain strong neighborhoods
Neighborhoods are the basic building blocks of Elk River and are the reason people stay in Elk River.
Residential development is judged on both aesthetics and function.
Commercial corridors are the most visible aspect of our community and shape our views and attitudes
about the community.
3. Keep Elk River a "safe" place
Elk River is a place where people feel comfortable and secure.
Traffic safety is an important factor in all aspects of community development.
A system of streets, sidewalks and trails encourages safe and convenient movement throughout the City.
Elk River is accessible for all people.
Municipal services (police, fire, water treatment) create both the perception and reality of safety.
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4. Preserve and maintain the environment
Elk River seeks to promote clean air and water in the management, development, and
delivery of municipal services.
Development must be served by well maintained and reliable infrastructure.
Development seeks to incorporate and blend the built and natural environments.
As Energy City, Elk River seeks to promote sustainable and energy efficient forms of
development.
5. Make Elk River a complete place
Community and economic development policies will seek to attract employment
opportunities and goods and services needed by the community.
The expansion of local employment creates more opportunities for people to live and
work in Elk River.
Planning and decision-making must recognize that the population of Elk River is not a
single commodity. Differences in age, economic status and ethnicity must be considered
in planning for future development, facilities and services.
Recreational and cultural opportunities are vital elements of a complete place and the
strength of the Elk River Brand.
A quality education system attracts and keeps people in Elk River.
6. Work to achieve the vision
Everyone shares responsibility for achieving the vision. It is not the sole responsibility of
city government.
The City will seek collaborative efforts with other partners who have shared interests in
achieving this vision.
All Chapters and aspects of this Comprehensive Plan work to achieve the Vision and the themes
for Elk River.
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Introduction
This Comprehensive Plan sets a vision of what Elk River will look and
feel like in thirty years. The Comprehensive Plan is one of the most
important tools for guiding the development and redevelopment in
;. Elk River. The plans, policies, and implementation strategies outlined
within can only help achieve the community's overarching vision for the
future if the Plan is actively followed and used. The City, its residents,
property owners and business owners must take specific actions if
the City is to realize the full value of this Plan. While each chapter
A I within this Plan offer additional implementation actions specific to each
component, the purpose of this Chapter is to provide guidance on using
the Plan.
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Elk River comprehensive Plan
! Holistic Approach
An overarching principle of this Plan is to consider economic,
social and environmental issues and opportunities simultaneously.
In addition, each chapter within this Plan is integrated and
qconnected to other chapters. Therefore, the successful
F implementation of this Plan requires that the City Council, Boards
City of and Commissions, City Staff and others consider this Plan as
a whole when making decisions. This balanced approach will
ver ensure that Elk River makes informed decisions that will help the
` City meet its overarching vision of a "vibrant, historic rivertown
that promotes an active lifestyle in an innovative and involved
�d community offering unlimited opportunities."
Initiatives
A Comprehensive Plan is a general plan that can provide the framework for more detailed plans
relating to a special topic or special area in the city. The following provides, a summary of key
initiatives that are important steps in moving Elk River towards its vision for the future.
Capita/Improvement Plan (CIP)
The Comprehensive Plan is a guide for public action. In many cases, these actions lead
to public investments in infrastructure and facilities. Planning for these investments must
include a financial element.
The City's capital improvement plan (CIP) matches the estimated project costs over a
five-year period with funding sources, allowing the City to prioritize projects and make
the best use of available revenues. By looking at future needs, the City is better able to
find funding sources to fill gaps and to coordinate projects with other jurisdictions.
The City adopted its first financial management plan, Key Financial Strategies for Elk
River, in 2002. Since then the City has prepared a five-year CIP annually. Future capital
improvement plans should continue to be coordinated with the Comprehensive Plan.
Sanitary Sewer Capacity
In 2013 the City underwent a study and investigation of the sanitary sewer system
capacity. Sewer capacity (or the lack thereof) influences the type and intensity (density)
of development and private and public costs of these improvements also influence
development in this area. While the study completed in 2013 addresses many of the
questions pertaining to capacity gained through expansion of the wastewater treatment
plant and the financial implications of making these improvements, continued study and
analysis of the future sanitary sewer system will be critical for future planning efforts,
particularly those areas in the northern half of the City currently outside of the municipal
urban service area.
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Street System
The City's Transportation Plan and Chapter 6: Transportation provide a long-term framework for managing the local
street system. This initiative focuses on specific steps that work to achieve the objectives of these plans.
Establish Key Street Corridors Which streets should be part of the City's state
Both the Comprehensive Plan and the City's aid system and eligible for funding with municipal
adopted Transportation Plan discuss broad locations state aid for streets?
for expansion of the street system. A key to Are other sources of local revenue available to
understanding these improvements will be identifying support this initiative?
and maintaining the routes of these key street How can the City most effectively leverage funding
corridors. This initiative should involve preliminary from the County and State?
engineering and transportation planning analysis to
evaluate the physical factors that affect routing. While A key strategy to understand existing conditions and
several studies have been completed over the past what future improvements are needed would be to
several years, further analysis is needed to proactively complete a pavement rating and program management
plan for future routing of streets. This is important exercise to rate all of the City's existing street
because: network. This will inform the City of where we are
A designated route allows the city to protect the and where we need to be in the future in terms of our
corridor from land use conflicts. Without the existing street network.
routing plan, the City has no means of keeping
development out of the potential right-of-way for
the street. Encroaching development increases the Interchange Area Planning
complexity and cost of the street projects. While the actual improvement of highway corridors
• A designated route gives the City the means of
may lie years into the future, the City benefits from
incorporating these streets in future plats. the continuing proactive approach to planning for
the interchange areas. The location and design of
This information provides better coordination of intersections with Highway 169 and Highway 10
roadway planning with overlapping agencies such have significant implications for land use, economic
as MnDOT, Sherburne County and Anoka County. development, and transportation planning.
One way of achieving clarity is the creation of The nature of highway access influences adjacent
an "official map." An official map is one tool for land uses. The conversion from intersections to
protecting street corridors. It shows existing and
interchanges or underpasses will change traffic
proposed future streets, roads, and highways of movements, may require removal of existing buildings,
the City and County, the area needed for widening
and may create a catalyst for new development or
existing streets, roads, and highways of the City redevelopment. Intersections and interchanges will
and County, and existing and future county state aid
also become focal points for automobile traffic. The
highways and state trunk highway rights-of-way. The
local street system must be designed to support traffic
statutory authority for the official map comes from volumes and movement patterns. Likewise, the closure
Minnesota Statutes Section §462.359.
of current intersections would alter the movement
patterns within the City and would alter development
Undertake Financial Planning opportunities and patterns at these locations.
On-going capital improvement planning is critical in
the success of future street improvement projects. A proactive approach provides the City with a basis
With limited sources of funding, it is particularly for working with MnDOT on planning for highway
important to create financially sustainable street improvements. The alternative places the City in a
improvement plans. Among the financial issues to position of reacting to State proposed designs.
consider in this planning are:
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Elk River comprehensive Plan
Greenways and Open Spaces
The Comprehensive Plan proposes to establish a greenway system throughout
Elk River. The implementation of this concept is not a single action. It
involves commitment to the concept and incremental steps to building this
system. Much like assembling a jigsaw puzzle, individual pieces are added
within the framework of a broader plan.
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Identify Key Properties
The City's Parks, Trails, and Open Space Plan currently underway will show
potential greenway and open space patterns based on existing data. A Natural
_ Resource Inventory (NRI) was completed in 2004 by the City which identified key
natural areas in Elk River including wetlands, prairies, swamps, marshes, forested
areas, and critical habitats. This information should continue to be utilized and
incorporated into the review of future development and redevelopment applications.
Establish a Finance Plan
Limited financial resources will play a role in undertaking this initiative of maintaining and obtaining greenways
within the City. Some potential funding strategies include, but are not limited to:
Allowing a landowner to place a desired preservation area in an easement that is recorded on the deed to
prohibit development of that land area. In return the landowner would receive some property tax relief. As
appropriate, these areas should include a trail easement to allow public access and links with other areas.
Encouraging property owners to donate property to the City for long-term preservation through the greenway
and open space system.
Using density bonuses as an incentive for additional land dedication. A developer can offset the loss of
dedicated lands with the ability to building additional housing units or cluster the homes. The City's Open
Space Preservation Plat regulations provide a model for the implementation of this strategy. The City can
also grant the ability to add additional lots if certain criteria are met. Allowing additional units or smaller
minimum lots might also be options for sewered subdivisions and zoning districts. This approach requires
specific criteria for obtaining the bonus and limits on maximum changes in density.
The greenway initiative promotes a reevaluation of the overall park dedication regulations, allowing the City
to discuss the role of the park dedication, and to develop plans to ensure implementation of overall park open
space needs. Shifting park dedication resources to greenways will reduce funds for other elements of the
park system.
Parks and greenways will compete with other services and facilities for property taxes. Some communities
have sought voter approval to issue bonds to finance park and open space initiatives.
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Promote Housing Maintenance and Revitalization
The residential neighborhoods in the Mississippi Connections Area contain some of the oldest
homes in Elk River. Housing in this area helps to provide more affordable housing options.
Creating tools for maintaining and revitalizing the housing stock is an important part of the
Mississippi Connections initiative.
Distinct edges between single-family residential neighborhoods and commercial districts should
be defined and maintained because residential and commercial uses typically have different
objectives for the use of property. Commercial properties need signs to attract customers,
and successful businesses create traffic and require parking. None of these conditions fit
the objectives for a single-family neighborhood. Edges and buffers can allow residential and
commercial uses to coexist. Without this approach, commercial uses may erode the edges of
neighborhoods, and may discourage maintenance of the existing housing stock.
The success of the City in preserving the Mississippi Connections Area identity will play a
role in maintaining the housing stock because establishing a desirable place to live will attract
homeowners and encourage investment. Property owners will then be able to capture monies
used for home improvements at the time of resale. Some potential public actions related to
housing in the Mississippi Connections Area could include:
Incentives to encourage home ownership.
Financial assistance for home improvements.
Regulations to prohibit undesirable activities and land uses.
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Intergovernmental Collaboration
The vision for the future of Elk River cannot be achieved without the cooperation and
collaboration of other units of government and overlapping agencies. Strong working
relationships and collaborative solutions are essential to the success of this Plan. Some of
the key governmental elements of the Plan include, but are not limited to:
r Annexation. Continued discussions with adjacent communities should occur
relating to opportunities for future annexation. Further planning and disscussions
are necessary to ensure adequate services are available.
_ Land Use. While a large portion of the City is undeveloped (due to limitations
relating to the municipal utility system), there are areas where Elk River and
neighboring and overlapping jurisdictions should coordinate on land use issues
including future extension of utilities to the outer boundaries of the City, the
coordination of the final plans for the Landfill area when final grade has been
achieved within the next 15-20 years, and the Highway 10 and 169 corridor areas
as they develop over the next several decades. Partnerships with surrounding
communities, the County and MnDOT will be needed moving forward.
Community Facilities and Services. Continued partnerships should be maintained
as it relates to the community facilities, in particular with the Independent School
District 728 and the various athletic associations on various recreation facilities and
programs, community education, celebrations and events, and similar issues and
opportunities. The City should also coordinate with ISD 728 if plans are made in
the future for expansion of existing, or the development of new, facilities. The City
should also continue to explore opportunities to work with other communities on
joint or shared services where appropriate.
Parks, Trails, and Open Space. The City of Elk River and neighboring communities
should continue to coordinate on providing trail connections between communities.
Coordination on connecting greenways and open spaces between the communities
should also be considered.
Housing. Elk River and the surrounding communities should collaborate on housing
issues and opportunities so that regional housing needs are met.
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Economic Development. Elk River's economy is tied to the regional
economy to some extent. In fact, most of Elk River's labor force
commutes to a job in another community outside of the City.
Consequently, Elk River should coordinate with other jurisdictions to
ensure that the regional economy is healthy.
Transportation. The transportation system involves many
- jurisdictions — some of which have goals, objectives and resources
that differ from those of the City, but nonetheless transportation
must work as a cohesive system. It is critical that Elk River and
pertinent neighboring and overlapping jurisdictions coordinate
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on transportation issues. Key areas where intergovernmental
collaboration is necessary include:
Highway 10 corridor improvements and enhancements;
Highway 169 corridor improvements and enhancements;
Pedestrian and bicycling crossings;
Truck traffic issues associated with aggregate and sand
mining areas, plants and the landfill;
Railroad at-grade crossing areas;
Continued future planning with the Northstar Commuter Rail;
Potential road turn-back candidates; and
Public transit.
Utilities. Elk River and its neighboring communities have
coordinated and should continue to coordinate on water supply,
sanitary sewer, and electrical supply issues. In particular, Elk River
and pertinent neighboring communities should continue to review
and adjust joint powers agreements relating to shared services.
Elk River and neighboring communities should also coordinate on Elk
River's plans to extend utilities to the outer boundaries of the City.
Surface Water Management. Surface water is not constrained by
political boundaries. The way Elk River handles its surface water
affects the surface water in neighboring communities. Likewise,
Elk River's surface water is affected by neighboring communities.
Consequently, it is important that all jurisdictions have a shared
vision and approach to handling surface water management. Elk
River and neighboring communities should continue to coordinate
with Sherburne County, the Minnesota Department of Natural
Resources, the Minnesota Pollution Control Agency, and others.
_ Small Area Studies
� As the mining activities cease and municipal utilities get extended
beyond the current utility boundary limits, further study and analysis
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will be necessary. In particular, the area surrounding the Highway
-- 169 corridor north to the City limits, and the area at the intersection
® of Highway 169 and County Road 33 will be of particular interest. A
study on land use and needed public improvements will be necessary.
While planning for these areas may be several years away, further
analysis and study of these corridors is vital to the success of the area
long term.
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Elk River Comprehensive Plan
Implementation
Implementation Tools
There are many tools that the City can and should use to help implement this Plan,
including, but not limited to, awareness and education, incentives, and public-private
partnerships. Perhaps one of the most important implementation tools includes the
City's ordinance and regulations. The following provides an overview of the updates
the City will need to make to its land use controls to be consistent with this Plan.
Zoning and Related Ordinances
The City has adopted zoning regulations for the purpose of carrying out the policies
and goals of the land use plan element of the Comprehensive Plan. The application
of zoning districts and the specific regulations must support the objectives of the
Comprehensive Plan. As a result, an outcome of adopting the Plan will be the review
and modification of the Zoning Ordinances as necessary.
The land use plan provides the basis for guiding zoning decisions that will be made by
_ the City and private property owners. Minnesota Statutes Section 462.356 states that
the planning agency shall study and propose to the governing body reasonable and
practical means for putting the plan or section of the plan into effect. Subject to the
I—. limitations of the following sections, such means include, but not limited to, zoning
{ f regulations, for the subdivision of land, an official map....."
This statute anticipates that the zoning regulations will be reviewed and updated to
ensure implementation of the land use plan. In a broad sense, this review of the zoning
ordinance should examine the following items:
The regulations for each zoning district should be reviewed to determine if they fit
with the intent of the Comprehensive Plan.
Zoning districts should be examined in relationship to land use designation. Changes
in zoning districts will be needed to match zoning with land use.
The City will need to thoroughly review and update its Ordinances to address
inconsistencies and conflicts to integrate the concepts described in this
Comprehensive Plan. Updating the Zoning Ordinance will be a large undertaking that
will require significant input, time and energy.
One of the policy decisions the City will need to make is how to implement the land use
plan through the zoning map. Unlike the Metropolitan Land Planning Act (Minnesota
Statutes Section 473), which requires consistency between the land use plan and
zoning in cities within the Twin Cities metropolitan area, Elk River may choose to take
a number of implementation strategies. Elk River has historically chosen to have zoning
consistent with the Comprehensive Plan. Each has varying implications for existing
property uses and the current zoning. The strategies include, but are not limited to, the
following:
Keep current zoning in place until such time as the use terminates or redevelopment
is initiated.
Rezone property to a zoning district compatible with a land use plan category.
Develop an interim strategy to address current use situations as they relate to long
term objectives.
16 / Chapter 3: Using the Plan
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Nonconforming Uses
Changes in zoning districts will create nonconforming uses. Such uses occur when the existing land
use is not allowed within the zoning district. In most cases, when these situations arise as the result
of a new or amended Comprehensive Plan, the goal is not to influence an immediate change in the
property use. Instead, the objective is to guide future investment to achieve the outcomes desired by
the Comprehensive Plan.
Nonconforming uses are controlled by the City's Zoning Ordinance. A review of the overall
Zoning Ordinance will provide the context for an evaluation of the nonconforming provision of
the Ordinance. This evaluation, in turn, may point to Ordinance changes that will assist in the
reasonable transition of nonconforming land uses.
Subdivision Regulations
Changes to the Subdivision Regulations are not required for the immediate adoption of the
Plan. The Plan does raise a series of potential changes in subdivision regulations that should be
considered by the City over the next several years.
Continue to consider amending the data required for Preliminary and Final Plat application to
include the Resource Inventory required for Open Space Preservation Plats;
Consider whether to alter subdivision design standards to achieve more affordable housing
without sacrificing the sustainability of neighborhoods.
Continue to study and make modifications as necessary to the park dedication requirements to
enhance the ability to undertake the greenway plan.
r�
Building Codes
., As conditions warrant, the City should coordinate with others to explore opportunities to facilitate
the City's progress toward sustainable development by updating the City's adopted Building Code to
address "green" building techniques.
F
Amending the Plan
The Comprehensive Plan anticipates change in Elk River over the next several decades.
Develpoment must occur in a manner consistent with the Comprehensive Plan and Zoning
Ordinances. If a proposed development is inconsistent with the Comprehensive Plan, the City
must evaluate whether or not it should amend the Comprehensive Plan (and likely the Zoning
Ordinances) to allow the development to occur. A great deal of thought, time and energy went
into this Plan, and the same effort must go into any amendment.
Amendments to the Comprehensive Plan may take several forms:
Changes to the Land Use Plan map or categories of the Land Use element;
Changes in other elements of the Plan;
Plans and other studies that become part of the Comprehensive Plan (e.g. Mississippi
Connections Redevelopment Plan and the FAST Study);
Updating of entire sections of the Plan as needed; or
Revisions related to major geographic or demographic sections of the community.
Chapter 3: Using the Plan / 17
Elk River C.prehensve Plan
II �
>5"4
e
Ow
Amendments to the Plan may originate from the City Council, Boards and Commissions,
or another party with a vested interest in an effected property. Adoption of
amendments, however, can only be accomplished by City Council resolution.
Measurements of Progress
The City should periodically review its progress on implementing the Comprehensive
Plan. The City could also consider developing a set of indicators to help measure
the progress of the Plan. City staff, the Planning Commission, City Council and
other Boards should periodically review progress on this Plan and make adjustments
accordingly.
In adopting this Plan, the City of Elk River makes a commitment to use the Plan as a
means of evaluating a variety of private and public projects. This evaluation requires
using a series of questions to consider the merits of the project:
Is the project consistent with the land use plan?
Does the project move Elk River towards its vision for the future?
Is the project consistent with the policies contained in the Plan?
A negative answer to one or more of these questions may illustrate flaws in the
proposed project. These flaws may be fundamental and require denial of the project,
but modifications to the project that bring it into compliance with the Plan may be
possible. Negative answers to the questions listed above might, however, point to
a need to amend the Plan. In such circumstances in which a noncompliant project
underscores a potential flaw in the Plan, then an effort to properly amend the plan
should be initiated. Not following the Plan in order to allow projects to move forward
will eventually render the Comprehensive Plan useless.
18 / Chapter 3: Using the Plan
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Introduction
This Chapter analyzes the City of Elk River's population and
demographic dynamics, including an examination of the City's
_- ! future population composition. It provides baseline data and future
projections of basic demographic elements including population,
housing and employment. The information contained in this Chapter
is intended to inform residents, city staff and city officials of the
current demographic conditions and their potential impact on future
land use and infrastructure. This historical data is provided to offer a
glimpse of past trends and the possible implications of those trends
as Elk River continues to evolve and change to meet new challenges
based on changing circumstances.
Chapter 4: Community Context / 19
Elk River Comprehensive Plan
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Geographic Setting
r �1
Elk River is situated at the confluence of the Mississippi and Elk Rivers in Sherburne
County, roughly 34 miles northwest of downtown Minneapolis. It is bordered by
rL '- the City of Ramsey to the east, the City of Otsego to the south, Big Lake Township
to the west, and Livonia Township to the north. U.S. Highways 10 and 169 and
Elk River State Highway 101 are the three main arterial routes. Elk River has a station on the
Jr � � Northstar Commuter Rail line to downtown Minneapolis.
p
Elk River Past, Present and Future
A Comprehensive Plan forms a bridge between the In addition to the railroad, farming played an
city's past and the city's future. The Plan as a tool important role in the development of Elk River. The
for managing and directing future actions naturally original claim of the City's most famous farmer,
looks forward, but building the future occurs within the Oliver Kelley, dates to 1850. By 1860, there
context of Elk River's past because the city's history were 110 recorded farms in Sherburne County.
and heritage are important parts of community identity. This number grew to a peak of 1,190 in 1910.
Failure to recognize and build upon Elk River's heritage Agriculture in the area included grain crops, potatoes,
risks losing the community's identity — making Elk and dairy cattle.
River just like any other place.
The current City of Elk River covers 44 square miles.
As the name suggests, Elk River's roots lie in the The largest area of the city was added in 1978 by
river. The first dam was built in 1851 and led to the the merging of Elk River Township. This expansion
construction of mills, making the river the catalyst for of Elk River provided the capacity for recent
commerce in the area. Initial development included development.
a flour mill and a saw mill. The community was
originally platted shortly thereafter in 1855, as the This Comprehensive Plan is about planning for the
town of Orono. This original plat covered an area of future of Elk River. It's about making choices on how
approximately 14 square blocks. to address significant issues that the community is
currently facing or will be facing in the coming years.
Then, in 1864, the St. Paul and Pacific Railroad line Issues like rising energy costs, increased traffic
reached Elk River, which drew development further to congestion, and changing demographics. Moreover,
the east. The town of EII< River was platted in 1865 this Plan is about guiding change in a positive way.
with the development pattern of the town oriented to
the rail line and the depot. Rail service spurred the
development of a variety of businesses in Elk River.
In 1880-1881, the town sites of Elk River and Orono
were combined and incorporated.
y.
A-
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Population
Population projections are effective planning tools when used correctly. However, their accuracy
is subject to several factors including assumptions for birth rates, death rates, migration, and
economic conditions. Assumptions are based on past trends and the best information available
at the time, but assumptions do not always remain true, and unexpected changes can occur.
Therefore, Elk River should use population projections presented in this Comprehensive Plan as a
general guide and not as an absolute certainty. Moreover, the City should periodically review and
update the population projections based on new conditions.
Over the past 30 years, the City of Elk River experienced significant change in population. In
1980, Elk River was home to 6,785 people, nearly tripling in size from 1970 (2,252 people). By
2000, the population grew to 16,447, and in 2010 the U.S. Census documented a population of
22,974. Refer to Table 4-A: Population Change: 1980-2010 for additional information.
Table 4-A: Population Change: 1980-2010
1980 Change 1990 Change 2000 Change 2010 Change
Place Population 1970-1980 Population 1980-1990 Population 1990-2000 Population 2000-2010
City of Elk
River 6,785 201% 11,143 64% 16,447 48% 22,974 40%
City of 4769 213% 5219 9% 6,389 22% 13,571 112%
Otsego
Big Lake 2697 37% 4452 65% 6,785 52% 7,386 9%
Township
City of Big 2210 118% 3113 0 0 0
Lake 41 /0 6,389 105/0 10,060 57.50/o
Livonia n/a n/a n/a n/a 3,917 51% 5,951 51.90%
Township
City of n/a n/a n/a n/a 2,851 83% 5,228 83.30%
Zimmerman
Sherburne 29908 63% 41945 40% 64,417 54% 88,499 37.40%
County
State of 4,075,907 7% 4,375,099 7.10% 4,919,479 7.30% 5,303,925 12.40%
Minnesota
Source: U.S. Census
Chart 4-I: Population Change
25,000
20,000
15,000
10,000
5,000
0
1970 1980 1990 2000 2010
■Population 2,252 6,785 11,143 16,447 22,974
Source: US Census
Chapter 4: Community Context / 21
Elk River comprehensive Plan
In 2006 the Minnesota State Demographer's Office projected a
population of 46,638 for the City of Elk River by 2035. While
the City anticipates more growth, it is recognized that the City
desires to preserve its character and that the utility system has
limitations. As such, Elk River anticipates a total population
of 34,890 by 2035. The following projections were made
using a growth rate of 615 people per year, which is based on
the average building permits over the past fifteen years and a _
household size of three people per household.
Population Estimates and Projections
Table 4-B: Forecasted Population Change: 2015-2035
Place 2015 Change 2020 Change 2030 Change 2035 Change
Population 2010-2015 2010-2020 2020-2030 2030-2035
City of Elk 23,172 1% 26,600 16% 31,960 20% 34,890 26%
River
City of 17,498 29% 20,402 50% 25,473 25% 27,673 9%
Otsego
Big Lake 10,456 42% 11,658 58% 13,806 18% 14,857 8%
Township
City of Big 13,581 35% 15,686 56% 19,503 24% 21,370 10%
La ke
Livonia 8,137 37% 9,318 57% 11,454 23% 12,498 9%
Township
City of 7,380 41 % 8,595 64% 10,802 26% 1 1,881 10%
Zimmerman
Sherburne 119,040 35% 134,390 52% 161,990 21 % 175,410 8%
County
State of N/A N/A 5,772,258 9% 6,182,306 7% N/A N!A
Minnesota
Source:Minnesota State Demographer,WSB and City of Elk River (Building Permit Data and Household Size Projections)
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Q Q Household Characteristics
In 2010, the U.S. Census reported 8,023
households in Elk River and 5,946 families. A
household refers to all persons who occupy a
housing unit. A household could involve a family
Chart 4-2: Average Persons Per Household living in a house or it could involve unrelated
people sharing an apartment. A family refers to a
3.4 parent or grandparent living with at least one child.
3.2 In Elk River, most families are comprised of married
3 couples with children. Yet, in the future, it is likely
that the percentage of married couples without
a 2'8 children living with them will increase. The
2.6 percentage of single parent households will also
2.4 increase.
1970 1980 1990 2000 2010
■Year 3.19 3.16 2.93 2.85 2.79 The average household size in Elk River in 2010
was 2.79 persons, which was down from 2.85 in
2000.
Source: US Census
Building Permits
Building permit data provides insights on the form and pace of development. Elk River experienced consistent
growth in new housing from 1996 to 2004, yet with the recent economy experienced a slow growth period.
Chart 4-3: Building Permits 1996-2012
600
500
EA
t
400
w
a
w
C 300
w
E 200
Z
100
0
1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012
■Building Permits 235 220 226 204 256 198 252 542 546 344 250 113 24 20 15 10 36
Source: City of Elk River
Chapter 4: Community Context / 23
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The value of residential housing in
Elk River is also increasing, as the Table 4-C: Residential Property Valuation 2000-2010
median value of residential property Value of Residential Property 2000 Number 2010 Number
increased from 2000 to 2010, as Less than $50,000 9 100
shown to the right. $50,000 to $99,999 475 262
$100,000 to $149,999 1,683 647
$150,000 to $199,999 1,181 1,578
$200,000 to $299,999 482 2,282
$300,000 to $499,999 43 1,430
$500,000 to $999,999 - 128
$1,000,000 or more 8 23
Median (dollars) 144,800 225,400
Source: US Census
24 / Chapter 4: Community Context
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Key Demographic Trends
Q In addition to knowing how many people live and will likely live in Elk River, understanding
the key characteristics of the people, such as their age, education and employment status
can aid the City in planning for and providing necessary and desired services for all of its
residents.
Age Composition
The population of Elk River is growing older as the median age is increasing from 28.2 in
1970 to 34.4 in 2010. The rate of median age change in the community has slowed, with
the rates from 1990-2010 changing by one percent or less each year. In 2010 the 35-44
age category was the largest in Elk River, and the second largest between ages 25-34. This
reflects a trend of younger households in the community, which will desire quality housing,
schools, recreational opportunities, and public services. Over the next 30 to 40 years this
age group will be aging and consequently requiring require senior housing options to remain
in the community. Alternatively, older populations may move out of the community leaving
housing stock open for younger families to move in. Either scenario the City of Elk River will
need to assess the community amenities and infrastructure to accommodate specific needs
of major demographic shifts.
Chart 4-4: Age Composition
4,000
3,500
3,000
c 2,500
2,000
0 1,500
a
1,000
500
10 to 15 to 20 to 25 to 35 to 45 to 65 to 75 and
5
Under 5 to 9 14 19 24 34 44 54 55-64 74 over
■ 1980 608 683 660 708 509 1,150 927 596 385 270 289
■ 1990 1,032 1,080 977 875 759 2,149 1,816 1,086 559 404 406
■2000 1,375 1,436 1,476 1,297 957 21461 3,117 1,963 1,049 663 653
■2010 2,140 1,937 1,739 1,377 1,381 3,125 3,755 2,991 2,263 1,357 725
Source: U.S. Census Comparison Profile
Chapter 4: Community Context / 25
Elk River Comprehensive Plan
Chart 4-5: Median Age
40
35
30 •
25
en 20 .
15
10
5
1970 1980 1990 2000 2010
Median Age 28.2 30.7 33.1 34.5 34.4 "
Source: U.S. Census
Table 4-D: Race and Origin 2010
Race 2010 Elk River Sherburne County Minnesota
White 91% 92% 83%
Hispanic or Latino 3% 2% 5%
Black or African American 2% 2% 5%
Asian 2% 1.2% 4%
Two or More Races 2% 1.6% 2%
American Indian and Alaska 0.4% 0.5% 1%
Native
0.4
2% 2%2 White
3% Hispanic or Latino
■Black or African American
■Asian
Two or More Races
91% ■American Indian and
Alaska Native
Source: U.S. Census
26 / Chapter 4: Community Context
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Educational Attainment
— The US Census reports that approximately
94 percent of the population attained a high
- school degree or its equivalent, and roughly
_ 42 percent of the population completed
an Associate's degree, Bachelor's, or
I graduate/professional degree. Compared
to Sherburne County and the State of
Minnesota, Elk River has higher percentages
of high school graduates. Compared to
Sherburne County, the City has a higher
percentage of persons over the age of 24
who hold bachelor's degrees or higher levels
of education; and compared to the state has
a lower percentage of persons who hold
advanced degrees.
Table 4-E: Educational Attainment - 2010
Educational Attainment Elk River Sherburne County Minnesota
High school graduate or higher 94% 92% 91%
Bachelor's degree or higher 29% 24% 31%
Graduate or Less 9th to 12th
professional than 9t grade, no
degree grade diploma High school
g% 2% 4% graduate
(includes
equivalency)
Bachelor's 26%
degree
22%
Associate's
degree Some college,
12% no degree
26%
Source: US Census
Chapter 4: Community Context / 27
Elk River Comp ehensive Plan
Employment and Income
In 2010, Elk River's unemployment rate (5.5%) was slightly higher
than the state average (4.9%), and slightly higher than Sherburne
County (5.3%). Elk River's median household income was higher than
that of Sherburne County, and higher than the State of Minnesota.
The poverty level of Elk River was lower than Sherburne County and
the State of Minnesota. (See Table 4-F for general employment and
income characteristics).
Table 4-F: General Employment and Income 2010 Employment Industry-
Characteristics - 2010 Elk River
Characteristics Elk River Sherburne Minnesota
County
In Labor Force 75.6% 74.3% 70.9% 13%
........................................... ................. . . .. . ......... . ...............
Employed in Labor Force 70.1% 69.0% 65.9%
........................................... ................. .................. .................
Unemployed In Labor Force 5.5% 5.3% 4.9% 9% 37%
Not In Labor Force 24.4% 27.3% 29.1%
Median household income $70,224 $71,819 $58,476
Persons below poverty level 7.1% 8.0% 11.0%
26%
It is anticipated that the employment in Elk River will steadily 15%
increase, at least through the year 2035. This employment
forecast is based on several assumptions involving anticipated
population changes, regional employment opportunities,
■Management, business, science,
unemployment, self-employment, multiple job holding, and net and arts occupations
in-commuting.
Service occupations
Chart 4-6: Income Levels 2010
Sales and office occupations
$90,000 ■Elk River —
$80,000 State — ■Natural resources, construction,
$70,000 and maintenance occupations
$60,000 Production,transportation, and
$50,000 material moving occupations
$40,000
$30,000
$20,000
$10,000
$0
Median Median Family Per Capita
Household
28 / Chapter 4: Community Context
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Summary of Demographic Trends
Affecting Elk River
The number of people living in Elk River will grow at a fairly consistent rate until
2035. However, the percentage of residents over the age of 65 will continue
to increase, which has ramifications for the types of housing and community
facilities and services that Elk River will need to provide its residents. In a
related matter, the average household size will continue to decrease over the
years, meaning that Elk River will need to provide additional housing units both
to accommodate the projected future population and maintaining its current
population.
As the population continues to grow, planning for a diversified population
will be instrumental to providing for all within the community. Employment
opportunities in Elk River are expected to gradually increase and opportunities
for development and redevelopment will be critical to providing for these
opportunities.
Chapter 4: Community Context / 29
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Introduction
The Land Use Chapter describes existing land use patterns and provides
an overview of how the city desires land will be used and developed in
the future. It seeks to accommodate desired growth while reinforcing the
preferred qualities of the community.
The Land Use Plan guides city staff, the Planning Commission, the City Council, property owners,
developers and other interested parties in decisions relating to the type, location and density
of future development in the community. It also serves as the foundation for updating the
City's Zoning Ordinances, Zoning Map, Subdivision Regulations and other implementation tools.
Implementation of the Land Use Plan produces several important implications:
Uses. Every parcel is placed into a specific land use category. Each category includes a
description of the type of land use intended for that category. This description should match
with the types and forms of development currently found in Elk River and desired for the future.
Relationships. Much like a jigsaw puzzle, the true picture comes from how each piece fits
together into a whole. The Land Use Plan guides how elements of the built and natural
environment come together in Elk River. These relationships will characterize the look,
function, and feel of Elk River.
Actions. The Land Use Plan sets the framework for public actions and investments. Utilities,
streets, parks, and facilities are all influenced by the form and pace of development.
Chapter 5: Land Use / 31
Elk River Comprehensive Pi.
Inventory and Analysis
Existing Land Use Characteristics
Figure 5-1: Existing Land Use shows the location and types of existing land uses in the City of Elk River as of 2013. The
inventory as conducted as part of this planning process reflects general development patterns and is intended for general
planning purposes only. The land use categories shown in the figure are further defined as follows:
Rural Residential Highway Business
Rural Residential includes land currently developed for Outside of the Central Business District, the majority
residential use in areas outside of the Urban Service of commercial land uses are placed into this category.
Area that are not currently served by municipal sewer The uses range from commercial areas that are
and water. The predominant land use in this area is occupied by professional trades (such as finance,
single family detached homes. Included among the insurance, and real estate) to more intense commercial
detached single family homes are single family "cluster activities requiring highway orientation for access
subdivisions." Cluster subdivisions are development and visibility. Approximately 342 acres or 1.3% of
patterns that place housing closer together in order to Elk River is located in the Highway Business land use
preserve greater areas of undeveloped or natural land category.
and to minimize the number of individual on-site septic
systems. In 2013 Rural Residential comprised of roughly Community Commercial
3,363 acres or 13.0% of the City. Community Commercial land use makes up 21 acres
or 0.1% of Elk River and focuses on community retail
Urban Residential development that are often service and convenience
Urban Residential land use makes up 2,537 acres or 9.8% oriented. Community Commercial refers to smaller,
of the City and includes land for residential use in areas neighborhood-oriented commercial uses. Although
that are currently served by municipal sanitary sewer limited use of the Community Commercial designation
system. Urban Residential land uses include single family exists in Elk River, these areas typically appear as
detached housing and attached housing in the form of small pockets of retail development along the highway
duplexes and townhomes. corridors.
High Density Residential Industrial
The Industrial land use includes all forms of businesses
High Density Residential land use consists of forms of multi- with manufacturing, distribution, warehousing or
family attached housing units such as apartment buildings other industrial use and is commonly referred to as
and condominiums. In 2013, roughly 94 acres or 0.4% of "Light Industrial", "Medium Industrial" or "General
Elk River was classified as high density residential use. Industrial." The majority of Elk River industrial
development is classified as "Light Industrial". The
Central Business District (Commercial) Cretex property and an area in the southeastern
The Central Business District (Commercial) includes retail, portion of the City south of 165th Avenue and
service and office uses in and around Downtown Elk River. along the Highway 10 corridor are classified as
Roughly 70 acres or 0.3% of Elk River is classified as "Medium Industrial". Industrial land use makes up
Central Business District (Commercial) land use. approximately 686 acres or 2.7% of the City.
32 / Chapter 5: Land Use
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Public/Semi-Public Mining
Public/Semi-Public uses make up approximately 564 In 2013, the Mining use makes up 1,869 acres or
acres or 2.7% of area in Elk River and refer to larger 7.2% of the City and its primary objective is to
tracts of lands used for public and institutional (religious allow the current mining use of the land within this
and educational) purposes. These uses include schools, category. These areas are currently being mined or
City and County governmental buildings, and religious are set aside for future mining.
uses.
Undeveloped
Open Space Undeveloped land refers to land that is in an
The Open Space category contains parks and undeveloped state, but that is guided and zoned
open spaces, and the City's recreation system. for future development or use. These lands may
Approximately 1,812 acres or 7.0% of land in 2013 currently be used for agricultural or agricultural
is allocated to the Open Space land use. Some of the research purpose, or may be vacant land awaiting
existing open space involves private recreation facilities future development to occur (specifically areas
(such as golf courses). currently within the MUSA boundary). Wetlands are
not included in this category. In 2013, roughly 8,840
Wetlands/Open Water acres or 34.2% of Elk River consisted of vacant/
undeveloped land.
The land use map includes areas identified as wetlands
according to the most recent National Wetland Inventory Road Right-of-Way/Railroad
as well as bodies of water in the City. This category In 2013, road right-of-ways and railroads accounted
contains approximately 5,298 acres or 20.5% of Elk River. for roughly 205 acres or 0.8% of Elk River. Road
right-of-way include city, county, state road right-
Landfill of-ways. Refer to Chapter 6: Transportation for
The Landfill area represents land operated in conjunction additional information.
with the sanitary landfill and makes up approximately
137 acres or 0.5% of Elk River.
High Density
Residential
Rural Residential Urban 0%
13% Residential Central
10% Business
Wetlands District
ROW/Railroad 21% 0%
1% Highway
Business
1%
Community
Open Space Commercial
Vacant/Undeveloped 7% 0%
34%
Mining
- 7% Industrial
3%
Landfill Public/Semi-
1% Public
2%
Chapter 5: Land Use / 33
Elk River C--rnp eFens e Fl-
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12i
O
33 oG i'
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Ik
o C a o
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L13 .
Rural Residential Medium Industrial
Urban Residential Public/Semi-Public
- High Density Residential Mining
- Central Business District ® Landfill
Community Commercial Agricultural Research l 1
- Highway Business Commercial Open Space f t to
Light Industrial Undeveloped \ \
ROW&Railroad
Open Water
0 0.5 1 1.5 2
Miles
b F�
Figure 5-1. Existing Land Use
34 / Chapter 5: Land Use
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Relationship between the 2013 Existing Land Use and
2004 Land Use Plan
The 2013 Comprehensive Plan Update utilizes the 2004 Comprehensive Plan as its
foundation and builds off of the amendments that have occurred since then. Although
there are some differences in future land use guidance as shown in Figure 5-2, the 2013
Plan takes all planning efforts (e.g. Mississippi Connections, FAST Study, and several
transportation planning efforts) and integrates them into this document for ease of use.
Table 5-A: Summary of Future Land Use - 2040 Land Use Plan
Gross Wetland Net The land use plan provides the
Existing Land Use Acres* Acres Net Acres* Percent framework or "road map" for the
of City growth and development of the City.
Agricultural Research 826.41 208.28 618.13 2.7% The land use plan serves as a guide
for the character and intensity of
Commercial Reserve 2,651.57 57.49 2,594.07 8.8% development and will be supported
Highway Business 532.30 32.96 499.34 1.8% by other land use controls and
FAST 986.31 166.49 819.82 3.3% public actions taken pursuant to the
High Density Residential 94.47 23.88 70.59 0.3% Comprehensive Plan.
Landfill 132.03 0.75 131.28 0.4% The land use map appears in Figure
Industrial 938.27 81.17 857.10 3.1% 5-2: Future Land Use. The Plan builds
Mining 2,651.57 57.49 2,594.07 8.8% on the existing community pattern
Mixed Use 196.82 2.17 194.65 0.7% to achieve the desired vision for the
Mississippi Connection 463.70 5.11 458.59 1.5% future of Elk River.
Open Space 2,560.26 509.81 2,050.46 8.5%
PubliclSemi Public 577.14 28.18 548.95 1.9%
Residential 17,265.40 4,030.73 13,234.67 57.1%
Water 357.38 326.39 30.99 1.2%
TOTAL 24,702.73 5,530.90 19,171.83 100%
Source: WSB & Associates, Inc.
Chapter 5: Land Use / 35
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Elk Elk River Comp ehensive Plan
River
Future Land Use Characteristics
Residential
Rural Residential
Rural Residential uses are guided to be developed as residential use in areas outside of the Urban
Service Area that are not currently served by municipal sewer and water. The predominant land
use in this area is single family detached homes. Forms of detached single family units can be
built in "cluster subdivision". Cluster subdivisions are development patterns that place housing
closer together in order to preserve greater areas of undeveloped land and to minimize the
number of individual on-site septic systems.
A gross density of 0.4 units per acre (1 unit per 2.5 acres) is the target density in the Rural
Residential area. Increases in density should be allowed for achieving certain public objectives such
as preserving natural features (which are not otherwise protected by ordinance), implementing the
City's trail and park master plan (beyond the typical required park dedication), incorporating energy
saving building techniques, or a combination of the above mentioned concepts.
Urban Residential
The Urban Residential area includes land guided for residential use in areas that will be served
by the municipal sanitary sewer system. This Urban Residential land use will be guided by the
density of development and not the type of housing. Densities of this development pattern
would range from a low density pattern consisting mostly of single family detached homes at 2
dwelling units per acre to a denser pattern of smaller lots or attached housing at a density of up
to 8 dwelling units per acre.
The intent of the Urban Residential land use is to have an average overall density of 3 to 4
dwelling units per acre throughout this land use. This density would be averaged over all lands
designated Urban Residential and would be achieved through the use of multiple zoning districts
that apply alternative density restrictions in order to achieve the overall density goals. Currently,
the City uses R-1 b, c, d, R-2a and R-2b to facilitate the density goals throughout the community.
Urban Residential land uses include single family detached housing, duplexes, townhomes and
multiple family dwellings. Housing units may be owner or renter occupied within this land use
designation. Urban residential should provide connections between neighborhoods, including
trails and streets, while also supporting screening and buffering from more intense traffic
corridors and uses.
High Density Residential
The High Density Residential land use category consists of multiple family attached housing
oriented in a vertical fashion, more commonly referred to as apartments and condominiums. This
land use category may accommodate a combination of side by side townhomes and multi-story
buildings. The densities targeted in this category are over 8 dwelling units and up to 20 dwelling
units per acre.
High Density Residential uses are located in places with compatible adjacent land uses and
where the local street system will accommodate the traffic. Preferred settings include adjacent
to Commercial Districts, employment and service centers, civic centers, park facilities, schools,
transit facilities and principal roadway corridors. When located adjacent to lower density
neighborhoods, high density housing can be designed to transition from its most intense use (3
Chapter 5: Land Use / 37
Elk River Comprehensive Plan
or 4 story apartments) to lower density (small lot single family or attached townhomes)
as it approaches lower density neighborhoods.
High Density Residential uses may also be located in appropriately zoned locations within
the Mixed Use and Mississippi Connections land use areas.
Mixed Use
The Mixed Use land use category allows a mixture of housing, jobs and/or retail services
uses within close proximity to each other. This land use creates the potential for people
to live close to their jobs and retail services, and it offers an environment where one can
live with less reliance on the car. This area provides another setting for high density
residential land use in Elk River.
Mixed Use is a district that reflects continued trends that seek to integrate residential and
nonresidential development in a common setting, close to transit services. Mixed use
development should be supported where transportation systems, including transit, are
available to provide alternative circulation opportunities.
The Mixed Use area is more frequently proposed in the redevelopment of commercial areas.
"Vertical" mixed use puts retail and housing uses into a single building. This form of mixed
use typically puts residential uses over street level retail or office uses where appropriate.
The Mixed Use designation may also include a more horizontal arrangement of uses with
strong pedestrian connections to foster a pedestrian friendly environment. Typically, a mixed-
use development will be completed as a Planned Unit Development (PUD).
Mississippi Connections
Mississippi Connections represents the historical core of the city, and corresponds to
a redevelopment framework adopted by the City Council in November, 2012. This
redevelopment framework established specific goals to strengthen the study area,
which was broken up into five neighborhoods. These neighborhoods include the older
residential and downtown commercial neighborhoods which are facing changes in the
form of access and visibility, shopping habits, and housing desires. The Mississippi
Connections Plan attempts to identify key strategic objects to reinvent the area as a
destination for a variety of uses and activities.
FAST
The Focused Area Study is the area immediately adjacent to the commuter rail station
at 171 st and Twin Lakes Road. The study, completed in 2010, represented an intense
collaborative effort between the City and the property owners and stakeholders in the
region. The Study identified the changing traffic patterns and how they affect business
and land uses in the area, as well as provided alternative uses as these patterns continue
to evolve over time.
38 / Chapter 5: Land Use
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Highway Business
The Highway Business land use ranges from moderate to high intensity forms of commercial
development in Elk River. Businesses in this category may be the largest both in terms of size
and traffic generation while also providing services and convenience types of business. Market
orientation tends to be regional in nature. Development orientation tends to be toward regional
highways. Future Highway Business developments should be located within the Urban Service
Boundary and adjacent to regional highways with both visibility and access. Examples of
Highway Business uses include discount retailers, grocery, restaurants, automotive sales and
service, general merchandise, and professional services.
The Highway Business land use follows the Highway 169 and Highway 10 corridors. An important
planning issue is providing options to accommodate increased demand for retail and service
opportunities that meet access, visibility and size requirements.
Development Reserve
The Development Reserve land use identifies areas held in reserve for future development. The
areas designated for this use lie adjacent to Highway 169 and Highway 10 outside of the Urban
Service Area, in the area generally north of Co Rd 33. These locations are well suited for various
development options in the future. While not currently served by municipal utilities, intense
development is expected in the future due in part to the size, access, and visibility of much of
the area. The Comprehensive Plan seeks to guide development in vacant land already served by
utilities before opening new areas for growth. The reserve status allows planning to facilitate the
desired form of development in the future. When the Development Reserve area is developed, it
is expected that this area will receive urban services. The City should plan for future expansion of
utilities into this area within the near future.
Chapter 5: Land Use / 39
Elk River Comprehensive Plan
Industrial
Historically Elk River has enjoyed a diverse and strong industrial base. This base thrives with
a regionally recognized labor force and business friendly posture. Industrial uses provide a
wide variety of benefits, including employment and daytime population. Daytime population
helps entice services, including a greater variety of services.
Light Industrial
The Light Industrial category includes industrial uses that are lower in intensity of
activity. These uses limit the potential for adverse impacts on adjacent land uses due
to factors such as noise and odor. Examples of Light Industrial uses include research
and development offices, enclosed storage and warehousing, laboratories, and light
manufacturing.
A portion of the current mining area south of County Road 33 may also include some
industrial development which will be determined through a more detailed planning and
engineering study before full reclamation and development occurs.
Medium Industrial
Medium Industrial land uses are intended for businesses with more intensive uses. The
level of intensity refers to the amount of land used by the business, the nature of the
industrial activity, and the potential for truck traffic. Examples of Medium Industrial uses
include contracting yards, lumber yards, concrete products processing, processing of
natural resources, and truck terminals.
Future Medium Industrial land uses are also appropriate for future reuse of the mining
area south of County 33 which will be determined through a more detailed planning and
engineering study prior to full reclamation and development occurs.
Public/ Institutional
This category includes larger tracts of land used
for public and institutional purposes. These uses f'
include schools, City and County governmental
buildings and religious institutions. The Kelley '
Farm is an example of this type of land use. p +
Open Space
The Open Space category contains the public
and private park and recreation and open s
space system. In the future, land will be
added to this category as new public parks are
identified, developed or as open space land is
dedicated pursuant to the Parks element of the
Comprehensive Plan.
40 / Chapter 5: Land Use
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Landfill
This area represents land operated in conjunction with the sanitary landfill. The Landfill
use is consistent with the current land use plan. The Landfill area should not be
expanded beyond the currently approved area within the City.
Mining
The primary objective of this land use category is to allow the current mining use of the
land and address future land use when development becomes appropriate. Based on
current information, the majority of resources in the Mining area will be extracted over
the next 10 to 40 years. An alternative use of this property is needed when the mineral
resources are removed. It is anticipated that the southern portions of the Mining area
(south of CR 33) will be available for development in the next 10 years. The mining
areas represent those portions of the community most likely to experience heavy growth
pressure, due to access, visibility, and abundance of available acres.
The City wishes to plan for this growth prior to development pressure. As part of the
Development Reserve Area planning, a number of issues need addressing:
What are the desired land uses for the area, post mining?
How can the City work with the miners to establish compatible reclamation plans?
How much development can be supported through an extension of the existing
sanitary sewer collection system?
If this capacity is inadequate, what are the options for sanitary sewer service to this area?
Does the cost of these sewer improvements influence the form of development?
How would the extension of sewer service to this area affect overall planning for
sewer plant capacity?
How is development within the area to be phased to provide both a critical mass of
property for development and the payment for the extension of municipal services?
How will access and visibility be managed?
How with neighboring incompatible land uses be protected?
Agricultural Research
The purpose of the Agricultural Research land use is to coincide with the agreement
between the City and Cargill, and consistent with the Focused Area Study (FAST) for the
171 st Avenue area. This land use allows for the continued use of the property for animal
nutrition and agricultural research and other related activities pursuant to the agreement,
while protecting the City's ability to guide other development. Other land uses not
consistent with agricultural research require and amendment to the Comprehensive Plan.
3 �
Water
Open water (permanently flooded open water, Takes, rivers and streams, and ponds, but
't
not including wetlands or periodically flooded areas) seeks to identify the bodies of water
in the community.
Chapter 5: Land Use / 41
Elk River Comp ehensive Plan
l `
j
�►-- �,+„�,� Redevelopment
' The City should explore more aggressively the
_ practice of redevelopment. Redevelopment does
not need to be the top down practice of relocating
_ neighborhoods and businesses to other areas so
-` - that new development can move in. Redevelopment
should be the stated and practiced posture of the
community to allow for and promote the reuse of
substandard parcels to achieve the vision of the
community.
" Redevelopment has many benefits, including
increased jobs, tax base, and employment options
within existing infrastructure, improving streetscape
and community image blight, and improved pedestrian
and vehicular connections. Even with these benefits,
redevelopment is more costly and time consuming
than greenfield development. The City should seek to
remove obstacles to redevelopment, such that it is as
attractive to new development as greenfield sites in
neighboring communities.
42 / Chapter 5: Land Use
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Elk Elk River Comp ehensive Plan
River
Implementation
The following objectives are aimed to use land in a manner that promotes a strong economy,
respects the natural environment, and ensures a high quality of life for all residents.
Actively seek opportunities to encourage Where appropriate, coordinate with
redevelopment of substandard and landowners and others to encourage the
underutilized sites within the urban preservation of existing privately owned
services area. natural areas.
Encourage development and Focus development and redevelopment in
redevelopment that enhances the existing areas that are already urbanized. Minimize
character of the neighborhood, protects further encroachments into natural areas
natural resources and strengthens the where feasible.
vitality of the neighborhood. Understand and recognize the significance
Promote the expansion of industrial uses that Elk River's natural resources had/have
in those areas identified in the Land in the development of the City. Continue to
Use Plan. Ensure that the expansion use ordinances and other tools to ensure that
complements existing uses, protects the reasonable protection and enhancement of
natural environment, and respects the natural resources.
surrounding neighborhoods. Based on market and demand, continue
Support the renovation and reuse to work with property owners and the
of existing buildings where feasible. development community on redevelopment
Encourage measures to increase energy proposals to ensure consistency with the Plan
efficiency where appropriate. and the overall community vision.
Continue to work with adjacent Where appropriate, encourage the continued
communities and overlapping jurisdictions use or adaptive reuse of existing buildings
to address issues of mutual interest with historic value, rather than the demolition
that, if not addressed, may constrain of the buildings.
future economic development in Elk
Continually seek and secure opportunities to
River and/or the adjacent communities or
in expand funding sources.
overlapping g jurisdictions.
Work with the City Council and City Boards
Ensure the protection of the City parks and Commissions on continuous review and
and open spaces are protected where modifications to the Plan, as needed.
feasible.
The City must also update its Zoning Ordinance to address inconsistencies and conflicts
that may exist. Updating the Zoning Ordinance may be a large undertaking that will
require significant input from the Planning Commission and others. It may also require
that the City simultaneously conduct additional studies that provide information needed
for the Zoning Ordinance update. This process should start shortly after the adoption of
the Comprehensive Plan.
The City must also revise the Zoning Map to be consistent with the Comprehensive
Plan. Although most of the Zoning Map will remain unchanged, there are some areas
that will need to be rezoned. The process of updating the Zoning Map should start
shortly after the adoption of this Comprehensive Plan.
Chapter 5: Land Use / 43
Elk River Comp ehensive Pi.
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44 / Chapter 5: Land Use
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Introduction
The transportation network, like most utilities, is something most
' ■•- people use daily without really thinking about how it works. Most
r individuals are not interested in how the various components of the
transportation network (roads, rails, trails and sidewalks) function with
one another or how they relate to the feel and function of a community.
Most people are just interested in how to get themselves, their
customers and their goods from Point A to Point B with little delay and
as safe as possible. However, integrated transportation networks that
support a healthy community do not just happen. Considerable thought
and planning is needed to make a system work up to its full potential
and to help support the type of community desired by residents.
Chapter 6: Transportation / 45
Elk River Comprehensive Plan
Ems-
- —
Transportation has played a key role in how Elk River developed in the past (river, railroad, TH 101, US 10 and
US 169) and how it will grow and redevelop in the future. As such, transportation planning and the issues on
the transportation network are an important part of the City's Plans. The transportation network has a significant
impact on the character, feel and functionality of a community. There is a natural nexus between transportation
and land use planning. Neither can be successful without taking the other into account
As the city progresses into the future, the needs and demands of the transportation network are changing. What
once was an auto-only focus has evolved to include important connections for transit, bicycling and walking.
This section of the Comprehensive Plan provides background on basic network information, summarizes studies
and analyses that have been completed since the last plan update, (including the Highway 10 and Highway 169
studies of 2010), identifies ongoing issues and concerns, identifies planned improvements and suggests practices
that can be used to address future needs.
Inventory and Analysis
There are four primary systems that comprise the transportation network within the City of Elk
River: roadways,freight rail, transit and trails/sidewalks. The sections that follow describe the
existing systems and their various components.
Roadways
This section of the plan describes the existing roadway system within Elk River.
System
ROAD ,,,
CLOSED The existing roadway system in Elk River is shown in Figure 6-1: Existing
Roadway Network. In a review of the system, it can be noted that there are a
limited number of continuous north-south and east-west routes. A majority of
the roadways shown on the map primarily serve a development, a neighborhood
or a small growth area.
The lack of continuous routes can be attributed to a number of factors including:
natural and man-made barriers (topography, lakes, rivers, streams, railroad,
parks); past development patterns and styles; and ongoing mining activities.
46 / Chapter 6: Transportation
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Elk Elk River Comp ehensive Plan
River
--- ------- -- ------- ------ - ---------------------------------I
I
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N 1st Ave
zits Ave
79
I . I
T � 121 U1
33 169 5
_ zt th Ave
32 1r ,r
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169
m
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169 U.S. Highway
�aa
County State Aid Highway 16st Ave
County Road to
r
Local Road
Figure 6-1. Existing Roadway Network
Chapter 6: Transportation / 47
Elk River Comprehensive Plan
Jurisdiction
Jurisdiction refers to the agency that owns and maintains a particular roadway. The
0,ii o,?t roadway network in Elk River is owned and maintained primarily by three governmental
agencies; the Minnesota Department of Transportation (MnDOT), Sherburne County and
n a the City of Elk River. MnDOT is responsible for interstate roadways (1), trunk highways (TH
F- 101) and US highways (US 169 and US 10). Sherburne County is responsible for county
O� roads (CR 30, 32, 33, 34, 35, 40, 44, 79, and 121) and county state aid highways (CSAH
roFTRP�yQ 1, 12, 13, and 33). Most of the remaining streets are under the jurisdiction of the City of
Elk River. It should be noted that there are some roadways that are privately owned and
maintained by a neighborhood association. These roadways are paid for by the property
NEC owners and the property owners are responsible for plowing the streets in the winter and
w � repairing the roadways when they need to be fixed.
The Sherburne County transportation plan identifies potential jurisdictional transfers for the
future. No timing has been identified, but the following roadways have been identified to be
C transferred to the City of Elk River: CR 121; CSAH 33 between Jarvis Street/Twin Lakes
Road and 205th Avenue; CR 44/35 between western city limits and US 10.
EP
In addition to these changes, the County has identified future roadways that it would
operate and maintain within the City of Elk River. These changes include: 221 st Avenue
with a future connection to CR 33 to the west and to the eastern city limits to the east;
�� 193rd Avenue; and Fillmore Street with a new connection to Jarvis Street (includes Jarvis
Elk Street). The county plan also identifies new county connections that currently do not
.��� exist and are not yet a part of the roadway network. These routes include a new CSAH
RiVer 33 connection between 205th Avenue and Twin Lakes Road (CSAH 13) and a new CR 32
extension between Elk Lake Road (CSAH 1) and the CSAH 33/CR 77 intersection. Figure
6-2: Sherburne County Identified Jurisdictional Changes shows the proposed changes.
Functional Classification
As drivers, people are aware that roadways serve different purposes. Some roadways
accommodate high traffic volumes and have few points to enter and exit roadway. Others
have multiple locations where vehicles can enter and exit and have lower speeds. The
purpose or function that a roadway provides is known as functional classification. A
roadway's functional classification identifies its role in the roadway hierarchy used by
agencies and planning officials to manage access, setback and other design-related features
of a roadway. It also influences the types of land use and development in an area. For
example, a Principal Arterial generally has higher traffic volumes and speeds. It is intended
to get people through an area and sever a larger travel shed. Developments that would
result in numerous individual driveways or homes along this type of corridor would be
discouraged for safety, mobility and noise reasons.
Figure 6-3: Existing Functional Classification shows existing functional classification.
48 / Chapter 6: Transportation
Elk Elk Elk River Comp ehensive Plan
River
----- -------- ------------- ------ ------------------------------------------ ------ --------
----------------------------------------
St 221S Ave
F-
121
•
•
169
21 th Av
thAve
V
207th Ave
MEMO
C
N
Scho I St
10
30 Mis 181st Ave
169
i t
165th Ave
A.i
NOMINEES City to County 10
County to City
Future County Road-New Alignment
Figure 6-2. Sherburne County Identified Jurisdictional Changes
Chapter 6: Transportation 49
Elk River Comp ehensive Plan
N -169
79_i zzlstAve zustAve
r
121 �
m
33 a thAve
32 �:
a �
—0. th Ave
zo A e —1
aq, r 34
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1 44
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30 M1 s 181stAve
169 X i
Functional Classification
Principal Arterial
165th Ave
Minor Arterial -_---1
Collector 10
Local
Figure 6-3. Exisiting Functional Classification ----
50 / Chapter 6: Transportation
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Elk Elk River Comp ehensive Plan
River
w
There are four roadway types within Elk River: principal arterials, minor arterials, collectors
and local streets. Each roadway plays an important role in the system. Figure 6-4: Access
versus Mobility shows the traits associated with the various functional classes. The roles are
discussed below.
Principal Arterial: There are three principal arterial routes within
the City of Elk River, TH 101, US 10 and US 169. In general,
principal arterials provide the greatest connectivity (link counties
and/or states), have significant continuity at a state or regional level,
serve longer trips (through traffic), and generally have higher posted
speeds and less access. They typically only connect with other
Proportion of Services principal and minor arterial routes and some select collectors. In
some instances principal arterials are freeways (interchange access
only) and in other locations they have at-grade intersections.
Mobility Arterials Minor Arterial: Existing minor arterial routes within the City include
CSAH 1, CSAH 12, CSAH 13 and Jackson Avenue. Generally
minor arterial routes are state or county facilities (with a few select
city roadways) that connect key activity centers and nodes and
Collectors have continuity on a county level. They generally serve medium to
long trips and they typically have higher posted speeds and more
restrictive access than collector or local streets. Minor arterials
generally connect to principal arterials, other minor arterials and
collectors.
Land Access Locals
Collector: Collector roadways (e.g., Tyler Street and CSAH 1)
provide links to local activity centers and connections between
Source:A Po/icy on Geometric Design arterial routes and local city streets. These roadways are intended
of Highways and Streets, AASHTO, to bring traffic from various nodes and funnel it to the arterial
2011 AASHTO Green Book
network. Collector streets have continuity at a local level and
generally serve medium to short trips. They serve a variety of land
Figure 6-4: Access versus Mobility uses and can therefore have a variety of speeds. In general, an
equal emphasis is placed on mobility and access.
Local Street: The remaining roadways are considered local
streets (e.g., Zane Street and 8th Street). Local streets provide
connections to neighborhoods, developments and to other streets.
There is generally low continuity (many cul-de-sacs), low speeds,
access is emphasized and a small travelshed.
Chapter 6: Transportation / 51
Elk River comprehensive Plan
Table 6-A below shows the different characteristics associated with each functional class type.
Characteristics Roadway Classification
Principal Arterial Minor Arterial Collector Local
Provide connections to Interconnect neighborhoods and minor Interconnect blocks within
Connect to the Twin Cities nearby communities, business concentrations. Provide residential neighborhoods
Place Connections and with other communities major traffic generators supplementary interconnection of major and land parcels with
in Minnesota. and regional business generators with regional business commercial and industrial
concentrations. concentrations. developments.
As needed in conjunction with
Spacing should vary in minor arterials to provide adequate
Spacing relationship to density—2— 1 -2 miles or as needed. connections of places. In addition, As needed to access land
6 miles. collectors should be designated at an uses.
average spacing of not less than 4
miles.
To interstate freeways, To most freeways and other To a few minor arterials.
System other principal arterials and principal arterials,other To minor arterials,other collectors and Primarily to collectors and
Connections minor arterials. Connections minor arterials and collectors local streets other local streets.
should be limited. and some local streets.
Medium-to-long trips(2-6 Short trips(depending upon Short trips(under 2 miles)
miles)at moderate speeds.
Trips greater than eight development density)at low to at low speeds. Longer trips
Trip Making miles. May have longer trips to moderate speeds. Longer trips for accessing the collector
access the principal arterial accessing the arterial network. network.
network.
Emphasis on mobility rather Equal emphasis on mobility and Emphasis on land access,not
Mobility vs. Greater emphasis on mobility than on land access.Direct land access. Direct land access mobility. Direct land access
Access than land access. Little or land access should be limited predominantly to development predominantly to residential
no direct land access. to concentrations of uses concentrations. and agricultural land uses.
rather than driveways.
Access Spacing Defer to MnDOT guidelines. Defer to county guidelines. Local guidelines Local guidelines for distances
between driveways.
Between 6 and 25 percent
System Mileage Between 2 and 10 percent with principal and minor Between 5 and 25 percent Between 55 and 80 percent
arterials
Grade separated desirable.
Intersections High-capacity controlled Traffic signals and cross- Four-way stops and some traffic signals As required
at-grade intersections at a street stops
minimum
Parking None Restricted as necessary Restricted as necessary Permitted as necessary
Large Trucks No restrictions Restricted as necessary— Restricted as necessary Permitted as necessary
generally not restricted
Access controllspacing, Traffic signal progression Number of lanes,traffic signal timing Intersection control,cul-
Management Tools median barriers,and traffic and spacing and land access de-sacs,diverters,traffic
signal progression managementicontrol and land access management calming measures
Vehicles Carried > 10,000 1,000—30,000 250— 15,000 Less than 1,000
Posted Speed Limit > 40 mph 35—55 mph 30—40 mph 30 mph maximum
Right of Way 100—300 feet(depends 60— 150 feet 60— 100 feet 50—80 feet
upon design)
Table 6-A: Functional Classification Characteristics
52 / Chapter 6: Transportation
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Freight
Freight is served primarily through truck and train
movements. In Sherburne County the movement
of agricultural goods, commercial and industrial
products and natural resources (aggregate, etc.) are
the major sources of truck freight. Adding to the
freight mix within the City are the existing aggregate
and sand mines near CSAH 33, the landfill at the
s. northern end of the City and the concrete plants
located closer to the southern half of the City. Truck
traffic uses TH 101, US 10, US 169 and a number
of county roadways to travel through the area and to
destinations within Elk River.
Rail Freight - Burlington Northern Santa Fe
(BNSF) Railway
The BNSF Railway provides freight service to the Elk
_ River area. The BNSF Railway is a Class I railroad
(major rail carrier that links large portions of the
country) that connects the west coast of the United
States to Chicago. The BNSF railroad roughly
parallels US 10 through the City of Elk River (Figure
6-1). In 2013, MnDOT updated its statewide
railroad information. According to the updated data,
approximately 54 trains per day use the railroad with
speeds up to 75 miles per hour.
Because many of the railroad crossings are at-grade
(no bridge over or roadway under the railroad), the
trains can have a negative impact on automobile and
freight traffic flow, as well as pedestrian and bicycle
crossings. In addition to blocking travel across the
railroad when trains are present, the railroad bisects the
City, creating a physical barrier between downtown
and the rest of the community to the north.
Chapter 6: Transportation / 53
Elk River Comprehensive Plan
Transit
There is limited transit service in the City of
Elk River. Most of the service is provided by Northstar Commuter Rail; however, there are a station
few specialized services that can assist targeted feikRiver
residents. The different services are described in
the following sections.
Northstar Commuter Rail Line T0111 of Northstar L ine
Since the passage of the 2004 Comprehensive -
Plan, the former Northstar Commuter Coach 11200
has been upgraded to the Northstar Commuter
Rail line. The Northstar Line offers service
between Big Lake and downtown Minneapolis,
with stations at Big Lake, Elk River, Ramsey,
Anoka, Coon Rapids and Fridley. In addition,
there is a bus that will take commuters from
the Big Lake station to the City of St. Cloud.
Northstar is considered, as its name implies,
commuter rail. This means that the service is
provided is generally limited to serving commuter
trips into the "city" (Minneapolis in this case)
in the morning and out of the metro area in the
afternoon/evening.
The Northstar Commuter Rail line operates on
the Burlington Northern Santa Fe (BNSF) rail line.
During the work week, service on the line includes y,,Aa Ay S
trips to and from Big Lake to Minneapolis both in
Nwe4il�r Ln+c :.
the morning and in the afternoon. The Elk River
station is connected to a park and ride lot located _
at the intersection of Twin Lakes Road and 171 st
Lane. There are over 750 parking stalls at the lot, *., 6
some of which are available for overnight parking. Mb
Figure 6-5, provided by Metro Transit, shows the
location of the park and ride.
a
1%I t:Arc hW
f�
t
W�
�4
af.
S
Figure 6-5: Location of Elk River station
54 / Chapter 6: Transportation
. � 11'
Elk Elk River Comprehensive Plan
River
RiverRider Public Transit f
RiverRider Public Transit provides door to door service
for all trips. Any resident in Elk River is able to use
this service for any transportation need - trip to the W.-
doctor, shopping, work, school, etc. The fare is
based on the destination. Rides must be scheduled in
advance. RiverRider is a typically referred to as a dial- ''
a-ride service. 4q
Veterans Services — Medical Center
Transportation
The Sherburne County Veterans Service operates
a 12-passenger van for the expressed purpose of
providing transportation to and from the Minneapolis
VA Medical Center. This service is limited to veterans Trails
who are unable to transport themselves. There is also
service to the St. Cloud VA Medical Center; however, As noted in the introduction of this chapter, there has
this is done through volunteer drivers in their own been notable change in the transportation network
cars. This service is free. Hours are limited, and rides over time. At one point, sidewalks and trails were
must be scheduled at least 48 hours in advance. recognized for recreational purposes and not for
serving a transportation purpose. That thought
process is changing. Today there is recognition that
Sherburne County Volunteer Driver Program most trips start and/or end with someone walking
The Sherburne County Volunteer Driver program and bicycle commuting rates are increasing within the
provides necessary rides for clients of Sherburne state. Because of the evolving role of the trail and
County when no other transportation is available. sidewalk systems, it is important to address them
Necessary appointments include: medical in both the transportation and parks and recreation
appointments, social services, mental health and other sections of the Comprehensive Plan.
purposes approved by the county. Seniors 65+ may
qualify for the program according to maximum income Figure 6-6: Existing Trails and Sidewalks shows the
guidelines. Service hours are limited. existing trail and sidewalk system. As shown in the
figure, the existing system does not link the entire
community. There are a number of gaps within
and between neighborhoods and major destinations
such as schools, parks, other recreational areas and
shopping nodes. There are, however, areas within
the community that currently have a robust sidewalk
and trail system in place. The areas with the most
connected trails and sidewalks are in the older
downtown areas and in newer developments that
have occurred over the past decade. Areas that are
more rural generally lack trail and sidewalk facilities
and areas that developed between 10 and 25 years
ago are also less likely to have trails and sidewalks
in place. These areas developed in an era when
communities were not constructing sidewalks or trails
as part of development.
Chapter 6: Transportation / 55
Elk River Comp ehensive Pi.
----- ----------------------- --------------------- -- -----------------------------------------------------------
40
St a 169
N
T 79 1 22i 221SI AVC
I
5i
33
��th�A-
20 th Ave
a20 Ave
tD
ro
b r
p � e g
v F
N 77 �
35 ¢
44 v
� o
\ a f
$ 81stAve
30 Mi i
169
111
169 U.S. Highway
County State Aid Highway
165th Ave
>� County Road to
r
Local Road
Sidewalk
Trail ----
\�
Figure 6-6. Existing Trails and Sidewalks
56 / Chapter 6: Transportation
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Elk Elk River Comp ehensive Plan
River
Issues and Opportunities
The previous section of this chapter provided an overall description of the transportation network as it exists
today. This section identifies the various issues associated with the network and identifies opportunities for
addressing concerns.
A number of issues and concerns related to roadways were identified as part of this planning process.
Concerns noted as part of this process and as part of the previous plan are described below along with
opportunities to address the concern. Final recommendations or policies that have been adopted through
previous studies have more detail in the Future Improvements section.
Congestion on MnDOT Roadways intent of these improvements is to make the roadways
Congestion continues to be a problem on US 10 and less congested, to develop supporting frontage/
US 169, especially during peak travel periods and backage roads for local trips and to improve safety
during the weekend. Both US 10 and US 169 link the by eliminating or improving the existing at-grade
Twin Cities and Greater Minnesota. As such, there is intersections and driveways.
commuter, freight and recreational traffic using these
Along with proposed improvements identified for US
roadways on a regular basis. This mix of traffic can
also contribute to the congestion experienced by users. 10 and US 169, the City of Elk River and Sherburne
County have the opportunity to develop or preserve
US 10 and US 169 are both principal arterials that local north-south and east-west corridors.
provide continuous travel flow. US 10 is an east-
west route and US 169/TH 101 is a north-south
route. These routes are part of a limited number of Traffic Diversion through
arterial facilities that provide a continuous connection.
Because there are few alternatives, traffic will Neighborhoods
continue to primarily use these routes to get through Residents are concerned that as MnDOT roadways
the area. Additionally, because there are few become more congested, motorists will look for
alternatives to these routes, local residents/businesses alternative routes that take them out of the congestion
are also required to use these routes for short trips or and keep them moving — even if it is a less direct
to use circuitous routes through local streets. route. However, a majority of the through traffic
MnDOT has recognized the problems on both US 10 (traffic not destined to stop in Elk River) is not likely
and US 169 for well over a decade. Serious efforts to divert to other roadways unless it is a county road
were initiated to identify improvements on both the simply due to the existing roadway network. Because
corridors in the early 2000s. The City of Elk River of the way Elk River has developed, in small sections
and Sherburne County were a part of those efforts. at a time and in a more rural style, there are very few
Generalized concepts suggested that these roadways continuous north-south and east-west routes that
eventually be converted to freeway facilities to have been developed, and even fewer are owned by
accommodate projected traffic demands. Interim the city. The few continuous routes that exist are
improvements in some locations were also identified. generally state or county roadways which are intended
Following the completion of the generalized plans, to accommodate heavier traffic volumes. While this
MnDOT, the City and the County, along with input does not mean that residential areas are not disturbed
from property owners and stakeholders, developed by traffic, there are few city streets that are going to
specific improvements for the corridors that were experience major traffic flows from through traffic as
documented in two environmental assessments. The a result of congested MnDOT roads.
Chapter 6: Transportation / 57
Elk River Comprehensive Plan
Residential neighborhoods are more likely to and east-west connections in areas where there is
experience diverting traffic from other local residents limited development today. This will ensure a more
and/or businesses that are familiar with the roadway even distribution to traffic in the northern half of the
network and know how to link from one neighborhood community and provide for better connectivity over
to the next. Most through traffic will not have the the long-term. Coordination with Sherburne County
patience to figure out a route that would get them will be key to the success of these efforts.
to where they want to go in a timeframe that would
make it worth the effort. The proposed functional classification map identifies
potential collector and arterial routes that could be
Improvements identified by MnDOT, the County and developed to help address connectivity needs. Some
the City for US 169 and US 10 will address a majority of the proposed changes shown on the map are
of these concerns. Additionally, if the County and included because Sherburne County's transportation
City develop other continuous routes, there will be plan identified new connections or modifications to
opportunities for local traffic to avoid US 169 and US the roadway status. A few of the county's proposed
10. Providing opportunities for local trips will free up changes include new alignments through public areas
capacity on MnDOT's roadways, thereby improving such as parks. Coordination and discussion between
traffic flow and resulting in less diversion. The the county and the city will occur before any new
proposed functional classification map shown in the roadways are constructed. The discussion between
last section of this chapter identifies potential collector the agencies will include ways to minimize impacts to
and arterial routes that could be developed to help existing land uses.
address the issue.
Non-Motorized Transportation
Lack of Continuous North-South Facilities and System
and East-West Routes (arterials and
The City of Elk River recognizes that a number of
collectors) The
make up the transportation network, and
The City of Elk River has been noted as having few that not all of them involve the use of single occupant
continuous north-south and east-west routes. This vehicles on the roadway. As shown in Figure 6-6,
lack of continuous routes is a result of natural barriers there are a limited number of sidewalk and trail
as well as the development patterns that have facilities within the community and they do not form
occurred over time. As noted above, much of the a cohesive system at this time. Like the roadway
City's development has come in small sections at a system, lack of continuous sidewalk and trail routes
time, has been more rural in nature, and has been will hamper the mobility of pedestrians and bicyclists,
constrained by the BNSF Railway, the Mississippi result in safety problems (sometimes there is no
River and other resources in the area. space to walk/ride when the system suddenly ends
and opportunities are limited for those with physical
At this time, it will be quite challenging to provide disabilities) and limit system users (who wants to use
good continuity in areas that have already mostly/fully a system that does not link to anything?).
developed. There may be some limited opportunities
to provide better connectivity than what exists today The City has begun to address the existing
in locations with some existing development (but not deficiencies by requiring new developments to include
fully developed), but there will be impacts to homes construction of either sidewalks or trails as part of
and businesses in these locations. their plans. In addition, the City has also identified
a number of new sidewalk and trail connections
The City should use the opportunity when it updates that serve as links between neighborhoods,
its transportation plan to identify new north-south recreational areas, downtown Elk River, and along key
58 / Chapter 6: Transportation
. � 11'
Elk Elk River Comp ehensive Plan
R1Ver
transportation corridors. Figure 6-7: Proposed Trails bicycle facilities; however, the existing network is not
and Sidewalks shows the proposed trail/sidewalks. connected to these improvements.
Along with facilities for pedestrians and bicyclists, There are seven locations on US 10 with traffic
transit is another opportunity to provide connections signals that provide accommodations for pedestrians
for those that cannot or choose not to drive. The City and bicyclists to cross the highway. The seven
has been very supportive of Northstar Commuter Rail signalized intersections include: 171 st Avenue, Main
and has developed a station area that supports transit Street, Jackson Avenue, Proctor Avenue, Upland
needs. Additional transit-supported development is Avenue, Joplin Street and Waco Street. There are
expected in this area. As part of these efforts, there no grade-separated crossings of US 10 today. It
will be opportunities to include additional provisions should also be noted that there are gaps at some of
for non-motorized traffic. the intersections where a segment of sidewalk/trail
is missing between the intersection with US 10 and
the spot where the trail/sidewalks starts (sometimes
Pedestrian and Bicycle Crossings the first cross street, sometimes after the first parcel,
(US 10 and US 169) etc.). These gaps create problems for users — users
find themselves trapped at the intersection.
The provision of safe and well-spaced crossings of
US 10, US 169 and other high volume roadways The Mississippi Connections redevelopment plan
for pedestrians and bicyclists is a concern for identifies the need for a grade separated crossing
system users. Both US 10 and US 169 are larger between downtown and the blocks to the north of
transportation facilities that can be challenging for the train tracks, in the area currently occupied by the
pedestrians and bicyclists to cross, especially during American Legion. The proposed sidewalk and trail
peak periods when traffic is congested. From a safety network map (Figure 6-6) shows these connections
perspective, even though technically pedestrians being addressed. The map also includes additional
have a right to cross the roadway at unmarked crossings on both US 10 and US 169. It should also
intersections, the true crossings on both US 10 and be noted that the long-term plans to convert US 10
US 169 are at signalized intersections and on cross and US 169 to a freeway will include accommodations
streets where there is a grade separation (interchange for both pedestrians and bicyclists at interchange and
or overpass). Traffic signals play an important role in overpass locations.
getting pedestrians and bicyclists across these busy
roadways. They provide adequate gaps for both Because the future trail and sidewalk plan is very
users to cross the roadway and they offer a controlled comprehensive, there are a number of proposed
crossing that keeps their movement separated from corridors throughout the city. The City should
take the opportunity as part of its updates to the
motor vehicle movements.
Transportation Plan and the Parks and Trails Plan
On US 169 there are six locations where there are to develop criteria that can be used to prioritize
facilities in place for pedestrians and bicyclists to construction of trails/sidewalks in areas that are
cross the highway with the assistance of a traffic already developed (efforts for new trails/sidewalks
signal or a grade-separated (bridge, overpass or should be included as a requirement for new
interchange) facility. Locations with traffic signals development areas and for redevelopment sites).
include: Main Street, School Street, Jackson/193rd,
and 197th. There is a stand-alone pedestrian/bicycle
bridge over US 169 between School Street and
Jackson/193rd which connects to Freeport to the
west of US 169 and to Dodge east of US 169. An
interchange at 205th also includes pedestrian and
Chapter 6: Transportation / 59
Elk River ComP,,ti, ,,Pi.
---- ----------- �-`- ------------- ------- ------- ---------------------------------------------------
N ------------
1 169
1 1 1
1 1 �
1 -------1 1, 2 lh Ave
® thj've
_ V
/ a zo hAve -'i
34
% .I
r —
o l •; 1 1 A e
1 On
1 1
1
1
,. 44.E
` — —
i --EK 40
10 i
1 �� • \- %
30 1 `% — T Oil
169 • — 5
% I
�% 1
`%
i %% %"
1 1
Existing Sidewalk
Existing Trail '-j--�
IL _
1
---- ---- .*.a--------
--- Proposed Trail
' 1 %` Z
� 1
to
Lakes �
Figure 6-7. Proposed Trails and Sidewalks
60 / Chapter 6: Transportation
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Elk Elk River Comp ehensive Plan
River
Future Improvements and Guidelines
Over the past several years, there have been a number of studies completed that have
addressed or studied the issues identified above and/or other issues identified by the City. The
recommendations of these studies, along with implementation guidelines for addressing the
issues and opportunities identified in the previous section are included here.
Congestion on MnDOT Roadways - US 10 and US 169
Congestion and Access Management
MnDOT and its partners, including the City of Elk River, have identified a
number of improvements to both US 10 and US 169 in order to reduce the
amount of congestion on the corridor, improve safety, and address some of
the existing connectivity concerns along the corridor. In addition to providing
connectivity and better crossings for motorized vehicles, the proposed
improvements also identified connections and crossings for pedestrians and
bicyclists. The improvements for US 10 and US 169 were developed as part
of two separate environmental documents completed in 2010 by MnDOT,
Sherburne County and the City of Elk River. The improvements include
converting US 169 to a freeway facility and converting a portion of US 10
to a freeway. The improvements identified in the environmental document
were confirmed in additional studies (Mississippi Connections Redevelopment
Framework, 171 st Focused Area Study, and 171 st Avenue AUAR). Figure
6-8 shows the locations of proposed interchanges and overpasses on US 10
and US 169. Figure 6-9 shows greater design detail of these interchanges
and overpasses and includes the frontage roads.
It should be noted, that while plans have been developed for both roadways,
no funding has been identified for improvements at the state or local level.
Because funding has not been identified or programmed, the timing of
improvements is uncertain as is the feasibility of making them as identified.
This plan acknowledges the uncertainty surrounding the improvements, but
presents them with the understanding that the proposed plans represent the
best information available.
The text on the following pages identifies specific improvements by highway.
Chapter 6: Transportation / 61
Elk River c..P,&,,n,i,,Pi.
----- -----------------------------
----------- ----- --------- ---------- -----------------------------------------------
---
t
N . 79..... 221st Ave ??iJ Ave
fy,
169
21 th Ave
2#14th Ave
20 Ave
_151
4444
scho I St
10
181st Ave
169
5
1 t
Construction of • Proposed Interchange
interchanges will
eliminate existing access A Proposed Underpass
points onto US 10 and US 165th Ave
169. Frontage roads are ■ Existing Interchange
also proposed in locations 10
along the corridor, but are ■ Existing Pedestrian Overpass
not shown on this map.
■ Interchange Search Area
Figure 6-8. Proposed Highway Improvements (Long-Term)
62 / Chapter 6: Transportation
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Elk Elk River Comp ehensive Plan
R1Ver
us 10 Auxiliary lanes and collector-distributor road between
Main and School Streets and School Street and 193rd
US 10 has been identified for conversion to a freeway Avenue.
over the long-term between US 169 and CR 44. The US 169 is lowered (reduces reconstruction of local
improvements identified by MnDOT and its partners roadways that cross over the highway)
also require shifting the BNSF Railway in order to US 169 shifted slightly to the east near BNSF Railway
create grade separations with both US 10 and the
railroad. The grade separations will enable vehicles (as BNSF Railway shifted
well as pedestrians and bicyclists) to cross the railroad Existing interchange at US 10/US 169/TH 101 is
and US 10 without having to be stopped by trains or upgraded to better channel all movements
mainline traffic on US 10. It is anticipated that these Interchange at Main Street
changes will take 20 years or more to implement. Interchange at School Street
Proposed improvements include: Interchange at Jackson/193rd Avenue and 197th
Four travel lanes (2 in each direction) with Avenue (split diamond)
shoulders and a median barrier Interchanges at 205th Avenue/CSAH 33 (already
Interchange at Main Street constructed)
Interchange at Proctor Avenue Interchange at 221 st Avenue
Interchange at Upland Avenue Frontage and backage roads
Underpass at Jackson Street Accommodations for pedestrians and bicyclists to
cross both US 10 and the railroad
Frontage road system between Upland Avenue and
Main Street Pedestrian and bicycle trails/sidewalks along crossings
and frontage roads
Access at Lowell Avenue is eliminated and will be
served by the frontage road All other public street and driveway access will be
Accommodations for pedestrians and bicyclists to eliminated from the corridor, with access provided at the
cross both US 10 and the railroad interchange locations.
Pedestrian and bicycle trails/sidewalks along It should also be noted that there is an existing pedestrian
crossings and frontage roads bridge located north of School Street that is used by both
In addition to these improvements, the 171st Avenue pedestrians and bicyclists to cross US 169. This bridge
Focused Area Study recommends constructing a new connects to local trails on both sides of the highway.
interchange between 165th and 171 st Avenues. This This pedestrian bridge could remain in place with
interchange will require frontage road connections to proposed improvements.
eliminate other existing at-grade intersections. This
interchange is also shown in Figure 6-8 Proposed Implementation
Highway Improvements (long-term). Because no timeframe has been developed, most of
the changes identified for US 10 and US 169 will occur
incrementally as funding becomes available, although
some portions of the project need to be coordinated
US 169 with one another. In general, construction of proposed
Like US 10, US 169 has also been identified to be frontage and backage roads can occur before interchanges
converted to a freeway facility by MnDOT, Sherburne are constructed and right of way for them can be
preserved as parcels develop and/or redevelop. The
County, the City of Elk River, Livonia Township U City of Elk River should work with MnDOT and others to
and the City Zimmerman. Other improvements identify funding sources and to move the various projects
identified for US 169 include: forward. Partners should also consider low-cost- high
Ultimate six-lane facility (initially constructed benefit improvements that can be implemented ahead of
as a four-lane freeway that can be modified by final implementation of the freeway vision.
converting the inside shoulders)
Chapter 6: Transportation / 63
Elk River Comprehensive Plan
N 221st e
zest Ave
—r 79 D
121
169
33
213th Ave
32
0
c 2o9th Ave
V
a2o7th Ave
r ro
c co �1 Ave� G
N �'7 77
I
y s
v
35 192nd
.a�
Scho 1St �
10
30 Mississi i Rd 181stAve
ti
r, -�J � ' 169
D \ 1 th
0
Improvements
16 th Ave
U.S. 10
10
U.S. 169
Figure 6-9. Detailed U.S. 10 and U.S. 169 Improvements
64 / Chapter 6: Transportation
Elk Elk River comprehensive Plan
R1VeY
collector roadways on the city system. Most of
F the proposed collector roadways are a continuation
of existing collector or arterial roadways or include
construction of new routes as development
occurs. Much of this proposed collector network
was identified as part of the US 10, US 169, the
Mississippi Connections Redevelopment Framework,
Li lm�l' °k and 171st Avenue Focused Area studies.
Traffic Diversion and Continuous Implementation
Routes (arterials and collectors) In order to implement changes that require
construction of new routes or segments of routes, it
The lack of continuous north-south and east-west is recommended that proactive efforts be undertaken
collector and arterial routes creates connectivity by the City in order to preserve the right of way that
problems and results in congestion on the limited is needed rather than building segments of roadways
number of continuous routes that do exist. At times as property develops. Waiting until development and/
this results in traffic using county and local streets or redevelopment occurs does not protect the route, it
to get to destinations that could be better served by can lead to increased acquisition costs and it may not
having additional continuous routes. Implementation occur in the correct timeframe. Things the City can
of improvements to US 169 and US 10 (along with do to preserve the routes:
associated frontage and backage roads) will help Complete a corridor study to identify the preferred
provide some of the connectivity that is currently alignment and location of the route
lacking. However, these improvements are not
programmed for the near future, so additional Adopt an official map
connections are needed. Advance purchase the right of way needed
Figure 6-10: Future Functional Classification shows It is important to coordinate these efforts with
the proposed future functional classification map MnDOT and Sherburne County if the efforts impact
for the City of Elk River. This map includes facility county or state routes to ensure that an alignment
upgrades to collector and arterial routes on county can be identified that serves the transportation need,
roadways identified by Sherburne County as part of its minimizes impacts to existing development (regardless
long-term transportation plan. Some of the changes in of use), and has the support of the required agencies.
functional classification include constructing additional It also provides an opportunity to pool funding
roadways (shown as dashed lines) or segments of resources.
roadways. It should be noted that the proposed routes
shown on the map are conceptual only. Discussions If proactive elements are not completed in time and a
between the city and county will occur prior to development does come along, it is important for the
any new roadway construction. As part of these City to include the locations of potential connections
discussions, the city and county will identify ways to as part of discussions with property owners and
minimize impacts to existing residential and park uses. developers prior to them submitting an official
application for approval.
Other changes over time may include additional
investments such as roadway widening (on minor Summary of Roadway Improvements
arterials), pedestrian and bicycle facilities, limiting and Changes
driveway access for newly constructed segments,
consolidating driveway access when redevelopment The previous sections highlighted a number of
occurs, etc. roadway network changes and improvements. Figure
6-11 shows all of the proposed changes graphically.
In addition to changes on the county network, there
are also classification changes recommended for
Chapter 6: Transportation / 65
Elk River Comprehensive Plan
---------------------------------
1�
j 40
169 1 I
—1—______ --— '22xAve
/ f
121
I 14
32
I
u th Ave
�L 1
20 Ave
v 1
% —
a � 20 A e
N� 20519 Aw
Or I
1 a
°
a
o ❑
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�.� 77 7th t I F
N �
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9 Ave
35 4
1 44 r
h fi
4 �
1st 40
1 �10
^i F s
pvos� a
30 Missis ' i
` 181st Ave
169
1
Functional Classification -�
Principal Arterial
Minor Arterial 1 165th Ave
Proposed Minor Arterial
10
Collector
---- Proposed Collector /
Locals
s�
J �
Figure 6-10. Future Functional Classification
66 / Chapter 6: Transportation Chapter 6: Transportation / 66
. � 11'
Elk Elk River Comp ehensive Plan
River
\'
1 Collector
1 Collector--
Co le for I Route
R to I 1/ Route
st o 1
zzisliAve
I
/ Collec or I •.
Collector t
R to 169 j Route -- 5
1 I z>�Ave
32 1 1 F Cal
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—Art riat"i �� o I th ve�p
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i
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ute' 1 a Ro
7. - –m
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35 out
:ollecr. �
Roe. �L. 44 � fi
{ _ Scho 1St
_ Minor 4D
Arterial
10 y Ro
st
18ist Ave
sets
30 Min y ;i zi
Z rterial 169 �• I �
v
K
f
'� es Mi
th Ar i
0 R
X %
I
1 Collector
Future county road from _ Route
existing city street
"" Future county road from a new route
10.
Future city street from existing
county road
r°
------ Future city street from a new street
Interchange area-Additional study needed
U.S. 10 Improvements
U.S. 169 Improvements
Figure 6-11. Future Network
67 / Chapter 6: Transportation Chapter 6: Transportation / 67
Elk River Comprehensive Plan
Bicycle and Pedestrian Connections and Crossings
In addition to the long-term planned improvements on US 10 and US 169 which
include crossings and connections for pedestrians and bicyclists, the City has identified
a number of future trails and sidewalks (Figure 6-7) to address the lack of trails and
challenging roadway crossings in some areas of the community. As shown on the map,
the recommended trail network is quite extensive and comprehensive. However, there
is not any prioritization to the network so it is challenging to identify which segments
will provide the most benefit for users and thus should be prioritized for implementation.
One of the ways that the City can improve connections and crossings for pedestrians
s and bicyclists is to recognize walking and bicycling as a transportation mode as well
as a recreational activity. By elevating these facilities as a means of transportation,
there are additional opportunities through grants and planning to prioritize connections
that serve a transportation or dual purpose. It is recommended that the City's Park,
Trails and Open Space Plan identify crossing and connection priorities. Recommended
priorities should be based off of criteria developed as part of the process and should be
incorporated into both plans.
Implementation
There are things the City can do on an ongoing basis that will improve conditions for
pedestrians and bicyclists and enhance the network. Activities include:
Incorporate sidewalk and/or trail provisions as part of the subdivision ordinance and
plat review criteria.
Incorporate sidewalk and/or trail facilities as part of construction and/or
reconstruction on all collector and arterial roadways.
Incorporate adequate shoulders on collector and arterial roadways for commuter
cyclists.
Include American with Disabilities Act improvements when repairing or constructing
roadways
Incorporate countdown timers and audible commands as part of new traffic signal
construction and traffic signal replacement (MnDOT has upgraded most of the traffic
signals on its network).
Incorporate best design practices for bicycle and pedestrian facilities at intersections
and at any mid-block crossings.
Consider lighting needs for system users when facilities are developed.
Apply for grants to help build the sidewalk and trail network.
Work with Sherburne County and MnDOT to implement improvements on their
roadway networks.
68 / Chapter 6: Transportation
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Elk Elk River Comprehensive Plan
River
-a
-- _ - - CD
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Introduction
Housing is an important component of all communities. Not only do
the quality, availability, affordability, and diversity of housing enhance
the quality of life in the City, it also supports economic development
k� .. and contributes to a community's sense of place. Many business
i
r%' owners look at the t
16. ype and supply of housing in a community when
s considering locations for opening or expanding their business. In
return, the location and expansion of businesses within the City serves
the population and attracts more businesses which keeps the cycle of
growth and development vibrant.
Housing is not a single, one size fits all, commodity. Personal housing
needs change as life passes from young, single adult to family to
elderly. This chapter provides an inventory and analysis of Elk River's
existing housing and paints a broad picture of residential development.
Chapter 7: Housing / 69
Elk River comprehensive Plan
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Inventory and Analysis
Housing Supply
Quantity and Types of Housing Units
In 2010, the U.S. Census reported 8,023 housing units in Elk River, which is 2,359 more units than identified in
2000. Data describing the household type, as shown below in Table 7-A, is based on data available as an estimate.
The most recent data is from the 2011 American Community Survey. Roughly 66.92% of the housing units in
2011 were single-family detached houses — this is considerably lower than Sherburne County (78.7%) and only
slightly lower than the State of Minnesota (67.5%). In 2011, roughly 15.1% of the housing units in Elk River were
single-family attached units (townhouses) — this is considerably higher than Sherburne County (5.9%) and the State
of Minnesota (7.2%). In 2011, the City had a fairly consistent percentage of multi-family housing with Sherburne
County and the State of Minnesota. Refer to Table 7-A: Housing Supply by Type, for more information.
Table 7-A: Housing Supply by Type - 2000 and 2010
Housing Type 2000 2000 2010 2010 2010 Sherburne 2010 State
Units Percent Units Percent County Percent Percent
Single-Family Detached 4,216 72.9% 5,666 66.9% 78.7% 67.5%
Single-Family Attached 432 7.5% 1,277 15.1% 5.9% 7.2%
2-4 Unit Multi-Family 97 1.7% 204 2.4% 1.6% 4.5%
5+ Unit Multi-Family 1,006 17.2% 1,234 14.6% 11.0% 17.1%
Manufactured Homes 31 0.1% 86 1.0 2.8% 3.7%
Total Units 1 5,782 1 100% 8,467 1 100% 1 100% 100%
Source: 2007-2011 American Community Survey 5-Year Estimates
Characteristics of Household Type
Table 7-B: Household Type Distribution — 2000 and 2010 compares
the distribution of family and non-family households in Elk River,
Sherburne County, and the State of Minnesota in 2000 and 2010.
Elk River's percentage of "family households" increased more
substantially between 2000 and 2010 than the County and the State.
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Table 7-13: Household Type Distribution - 2000 and 2010
Change (Number) Change (Percent)
2000 2010 2000-2010 2000-2010
Household Type Elk River County MN Elk River I County MN County MN Elk River County I MN MN
Family Households:
Married-couple: 3,665 14,294 1,018,245 4,894 19,163 1,060,509 1,229 4,869 42,264 33.5% 34.1% 4.2%
Male household,no NIA NIA 68,114 336 1,064 89,707 NIA NIA 21,593 NIA NIA 31.7%
wife present:
Female household, 519 1,615 168,782 716 2,271 198,799 197 656 30,017 38.0% 40.6% 17.8%
no husband present:
Total,Family 4,402 21,581 1,255,141 1 5,946 22,498 1,349,015 1,544 917 93,874 35.1% 4.2% 7.5%
Households
Non-Family
Households
1-person household 973 3,393 509,468 1,638 5,101 584,008 665 1,708 74,540 68.3% 50.% 14.6%
2 or more-person 289 1,445 130,518 439 1,973 154,204 150 528 23,686 51.9% 36.5% 18.1%
household
Total, Non-Family 1,262 4,838 639,986 2,077 7,074 738,212 815 2,236 98,226 64.6% 46.2% 15.3%
Households
Total 5,664 21,581 1 1,895,127 1 8,023 1 29,572 2,087,227 2,359 7,991 1 192,100 1 41.6% 37.0% 1 10.1%
Comparison of Owner-Occupied and Renter-Occupied Units
It is important for communities to have a mixture of both owner-occupied and renter-occupied units. In general,
regional planners note that many communities strive to have roughly 65-70% of their housing units owner-occupied. In
2000, approximately 78.2% of the housing units in Elk River were owner-occupied, which is lower than the average
of Sherburne County (84.0%) and slightly higher than the State of Minnesota (75%). In 2010, the City of Elk River's
housing occupancy ratio (owner: renter) increased slightly, with 80.4% of the housing units being owner occupied and
19.6% being renter occupied. Refer to Table 7-C: Housing Tenure by Type - 2010, for additional information.
Table 7-C: Housing Tenure by Type - 2010
Units per Owner Percent Percent Percent Renter Percent Percent Percent
Structure Occupied Owner Owner Owner Occupied Renter Renter Renter
Units Occupied Occupied Occupied Units Occupied Occupied Occupied
County State County State
Single-Family Detached 5,298 66.0% 74.2% 62.5 221 2.8% 6.6% 5.0
Single-Family Attached 1,014 1 12.6% 5.1% 5.6 217 2.7% 1.2% 2.0
2-4 Unit Multi-Family 53 0.7% 0.1% 0.9 100 1.2% 1.1% 3.5
5+ Unit Multi-Family 51 0.6% 0.2% 1.9 983 12..3% 10.0% 15.4
Mobile Home 34 0.4% 1.2% 2.7 52 0.6% 0.3% 0.5
Total Units 5,782 100% 8,467 1 100% 1 100% 1 100%
Source: 2007-2011 American Community Survey 5-Year Estimates
Chapter 7: Housing / 71
Elk River Comprehensive Plan
Table 7-D: Vacant Housing by Type - 2010 Vacancies
Year City City County State In 2010, the City of Elk River faced an overall housing
Vacant Percent Percent Percent vacancy rate of 5.4%, which is 1.3% lower than the
Units Vacant Vacant Vacant vacancy rate for the County and 5.1% lower than that
2000 118 2.0% 5.5% 8.3% of the State. In the year 2000, Elk River's vacancy rate
was also lower than the rates of both the County and
2010 462 5.4% 6.7% 10.5% the State. From 2000 to 2010, the County vacancy
Source: 2007-2011 American Community Survey 5-Year rate increased just 1.2% compared to a 2.2% increase
Estimates statewide. Elk River experienced a 3.4% increase during
this same time period. This can partly be explained by
the fact that the number of housing units in the City
increased by 46.4% during this time and the housing
market experienced a significant decline. Refer to Table
7-D: Vacant Housing by Type-2010 for additional
information.
Table 7-E: Owner-Occupied Value of Housing
Housing by Value - 2010 The median value of owner-occupied housing
Value Units* Percent Sherburne State units in Elk River in 2010 was $225,400- up
County 55.7% (or $80,600) from the median value in
Less than 100 1.6% 2.7% 5.6% 2000 of $144,800. Most housing in Elk River is
$50,000 valued in the range of $200,000 to $299,999. In
comparison to low and moderate valued housing,
$50,000 to 262 4.1% 3.8% 9.2% there is a relatively small choice of higher valued
$99,999 housing units in Elk River. The median value of
$100,000 to 647 10.0% 14.0% 14.3% owner-occupied housing in Sherburne County
$149,999 was $200,100 and $201,400 in the State of
$150,000 to 1,578 24.5% 29.5% 20.4% Minnesota. Refer to Table 7-E: Owner-Occupied
$199,999 Housing by Value -2010 for additional information.
$200,000 to 2,282 35.4% 32.4% 27.5%
$299,999
$300,000 to 1,430 22.2% 15.7% 16.5%
$499,999
$500,000 to 128 2.0% 1.8% 5.5%
$999,999
$1,000,000 or 23 0.4% 0.2% 1.0%
More
Median Value 225,400 x $200,100 $201,400
Total 6,450 100% 100% 100%
Source: U.S. Census Bureau, 2007-2011 American
Community Survey
*Owner occupied units
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Table 7-F: Owner Monthly Costs as Percent of Owner Monthly Costs as Percentage of Household
Household Income - 2010 Income
Percent of Units Percent Sherburne State Housing decisions should not be based solely on the value
Household County of housing, but also the cost of housing expenses in
Income relation to household income. In general, housing costs
Less than 20% 1,461 27.9% 29.5% 35.1% (taxes, insurance, principal, interest, etc.) should not
20.0 to 24.9% 989 18.9% 18.4% 17.7% exceed 30% of total household income. In 2010, 39.5%
of homeowners in Elk River had monthly costs that were
25.0 to 29.9% 719 13.7% 14.6% 13.6% 30% or more of their household income, compared to
37.5% in Sherburne County and 33.6% in the State of
30.0 to 34.9% 505 9.7% 9.8% 9.3% Minnesota. Refer to Table: 7-F: Owner Monthly Costs
35.0%or More 1,556 29.8% 27.7% 24.3% as Percent of Household Income -2010. These figures
suggest that housing was less affordable in Elk River than
Not Computed in Sherburne County and the State of Minnesota in 2010.
They also suggest that about two out of five homeowners
Total 5,230 100% 100% 100% in Elk River may find it difficult to make their mortgage
payments. Consequently, some may default on their loans
and others may find it difficult to keep up with household
Source: U.S. Census Bureau, 2007-2011 American maintenance and repairs.
Community Survey
*Housing Units with a Mortgage
Table 7-G: Owner Monthly Costs as Percent of Contract Rent
Household Income - 2010 In 2010, rental housing units accounted for 19.61% of the
Monthly Rent Units Percent Sherburne State occupied housing units in Elk River. 78.8% of the renter-
County occupied units had a monthly rent of $500 or more in
2000. In 2010, about 89.9% of units had a monthly rent
Less than$200 72 4.7% 5.2% 3.1% of $500 or more, which is higher than Sherburne County
$200 to$299 0 0.0% 2.6% 5.1% (86.0%), and the State of Minnesota (81.2%) average.
Refer to Table 7-G: Renter-Occupied Housing Units by
$300 to$499 82 5.4% 6.2% 10.6% Gross Rent - 2010, for additional information.
$500 to$749 383 25.1% 24.3% 27.1%
$750 to$999 621 40.7% 32.6% 26.5%
$1000 to$1,499 204 13.4% 21.6% 19.9%
$1,500 or more 164 10.7% 7.5% 7.7%
No Rent Paid 47
Median Rent Paid $795 $813 $783
Total 5,230 100% 100% 100%
Source: U.S. Census Bureau, 2007-2011 American
Community Survey
Chapter 7: Housing / 73
Elk River Comp ehensive Plan
Table 7-H: Gross Rent as Percent of Household Renter Monthly Costs as Percentage of Household
Income - 2010 Income
Percent of Units Percent Sherburne State In 2010, 40.7% of renters paid over 30% of their
Household County household income in rent. Refer to Table 7-H: Gross Rent
Income as Percent of Household Income - 2010. This number is
lower than Sherburne County (51.7%) and the State of
Less than 15% 144 9.4% 10.4% 12.0% Minnesota (49.4%).
15.0 to 19.9% 336 22.0% 14.0% 12.5%
20.0 to 24.9% 241 15.8% 12.1% 13.5%
25.0 to 29.9% 184 12.1% 11.7% 12.6%
30.0 to 34.9% 98 6.4% 8.7% 9.5%
35.0%or More 523 34.3% 43.0% 39.9%
Not Computed 47
Total Specified 1,573 100% 100% 100%
Units
Source: U.S. Census Bureau, 2007-2011 American
Community Survey
Table 7-I: Owner Monthly Costs as Percent of Age and Maintenance of Housing Stock
Household Income - 2010 In 2010, roughly 24% (2,102 units) of the City's units
Year Units Percent Sherburne State were constructed before 1980. Just 4% of the housing
Structure County units in Elk River were built before 1939. The number of
new housing units built in Elk River is generally consistent
Built with the County but higher than the State, with 52%
2005 or later 772 9% 7.4% 4.4% of housing units being built since 1990 compared with
2000 to 2004 1,802 21% 21.0% 9.3% 54.1% for the County and 27.2% for the State. Refer to
Table 7-I: Owner Monthly Costs as Percent of Household
1990 to 1999 1,850 22% 25.7% 13.5% Income-2010 for additional information.
1980 to 1989 1,941 23% 16.6% 12.9%
1970 to 1979 1,022 12% 13.8% 16.0%
1960 to 1969 359 4% 4.7% 10.0%
1950 to 1959 218 3% 3.8% 10.6%
1940 to 1949 125 1% 1.9% 5.0%
1939 or Earlier 378 4% 5.1% 18.1
Total Specified 8,467 1 100% 100% 100%
Units
Source: U.S. Census Bureau; 2007-2011 American
Community Survey
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Residential Construction
Table 7-J: Building Permit Trends 2000 to 2012 2,659 new housing units were added in Elk River over the
Single-Family Multifamily Total last decade (2000-2009). This includes 160 multifamily
Year units and 2,499 single family(Units) (Units) (Units) 9 Y homes.
2000-2009 2,499 95 2,659 Single family home construction averaged about 250 homes
per year during the past decade (2000-2009). The first
2010 15 0 15 three years of this decade (2010-2012) have averaged
2011 10 0 10 much lower numbers at 20 homes per year, which is
attributed in part to the economic recession. Single-family
2012 36 0 36 home construction peaked during the last decade in the
years between 2003 and 2005, with an average of 477
homes per year. Refer to Table 7-J: Building Permit Trends
2,560 95 2,720 2000-2012 for additional information.
Source: City of Elk River, WSB & Associates, Inc.
Building Permits 1996-2012
600
500
400
a
a
c 300
a
E 200
z
100
0
1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012
■ Building Permits 235 220 226 204 256 198 252 542 546 344 250 113 24 20 15 10 36
Source: City of Elk River
Chapter 7: Housing / 75
Elk River Comprehensive Plan
Plumbing, Kitchen, and Telephone
The U.S. Census identified that of the 8,023 occupied housing units in Elk River in 2010, 34 lacked complete
plumbing facilities and 87 lacked complete kitchen facilities. It was estimated that 242 units (3.0%) had no
telephone service, which today is a commonality as many people choose to terminate in-home telephone service
for usage of their cellular device. This is important to note to understand that future community outreach will
need to be communicated in a variety of ways to ensure input is received where necessary.
Tenure by Age of Householder
Table 7-K: Household Tenure by Age of Householder-2010, on the next page, shows the distribution of the
owner-occupied and renter-occupied housing units in Elk River in the year 2010. The graphic below breaks down
the number of units by the age cohort, as housing needs tend to differ at key stages of a person's life. The
graphic also shows the gradual change in the rate of homeownership within the City.
Rental housing is generally most popular with young adults (35 and under) as well as older seniors (75+) in
the State of Minnesota. The same is true in Elk River as there is a lower ownership percentage for younger and
older age groups in comparison to those that are more middle aged. With the low cost generally associated
with the cost of renting as well as the flexibility in housing situations, young households typically find renting
as the preferred housing option. Increased burdens of home maintenance can make rental housing a desirable
alternative for seniors.
The homeownership rate fluctuated in the year 2010 between ages 35 to 74, ranging from 83.1 % for 35 to 44
year olds to 90.9% for those between 55 and 64. The percentage of rental households in Elk River decreased
from 21.7% to 19.8% from 2000 to 2010.
Household Tenure by Age of Householder
City of Elk River 2010
140 120%
120 100%
a�
100
80%
c 80
60% Q
60 s
E N
40% a)
Z 40 � 3
0
20 — 20%
0 0%
15-24 25-34 35-44 45-54 55-64 65-74 75+
Renter HHs Age of Cohort
Owner HHs
Ownership Rate
Source: U.S. Census Bureau; WSB & Associates, Inc.
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Table 7-K: Household Tenure by Age of Householder - 2010
Elk River Sherburne County Minnesota
Number Percent* Number Percent* Number Percent*
Owner HHs
15.24 71 0.9 323 1.1% 21,339 1.0%
25.34 1,099 13.7 4,295 14.5% 203,188 9.7%
35.44 1,650 20.6 6,336 21.4% 295,586 14.1%
45.54 1,338 16.7 5,937 20.1% 379,200 18.1%
55.64 1,235 15.4 4,182 14.1% 307,858 14.7%
65.74 713 8.9 2,062 7.0% 181,502 8.7%
75+ 344 4.3 1,306 4.4% 153,697 7.3%
Total Owner HHs 6,450 80.4 24,441 82.6% 1,542,370 73.6%
Renter HHs
15.24 210 2.6 853 2.9% 86,269 4.1%
25.34 410 5.1 1,331 4.5% 151,047 7.2%
35.44 335 4.2 991 3.4% 89,684 4.3%
45.54 242 3.0 696 2.4% 78,169 3.7%
55.64 123 1.5 357 1.2% 52,602 2.5%
65.74 91 1.1 308 1.0% 30,513 1.5%
75+ 162 2.0 595 2.0% 63,611 3.0%
Total Renter HHs 1,573 19.6 5,131 17.4% 551,895 26.4%
Total HHs
15-24 281 3.5 1,176 4.0% 107,608 5.1%
25-34 1,509 18.8 5,626 19.0% 354,235 16.9%
35-44 1,985 24.7 7,327 24.8% 385,270 18.4%
45-54 1,580 19.7 6,633 22.4% 457,369 21.8%
55-64 1,358 16.9 4,539 15.3% 360,460 17.2%
65-74 804 10.0 2,370 8.0% 212,015 10.1%
75+ 506 6.3 1,901 6.4% 217,308 10.4%
Total Households 8,023 100.0% 29,572 100.0% 2,094,265 100.0%
Source: U.S. Census Bureau; 2007-2011 American
Community Survey
Chapter 7: Housing / 77
Elk River Comprehensive Plan
Life-Cycle Housing and Profile of Households
The housing needs of a community relate to the demographic profile of the household. Typically,
households move through several life-cycle stages including entry-level households, first time homeowners,
move-up buyers, empty nesters, and older seniors.
The following describes each of these household types and the effect that they have on housing demands
in Elk River.
Entry-Level Households Move-Up Buyers
People in the 18 to 24 year old Move-up buyers are typically in their 30s and 40s.
age group typically leave their They move up from the smaller, less expensive house
childhood home and establish their that they had purchased earlier. From an economic
own household. They often rent a growth perspective, this is an important age group
house or an apartment because they of people. Typically, move-up buyers have children
generally do not have the income in school and an established job. They are less apt
and savings needed to buy a home. to move to another community and start over. Also,
In addition, many people in this age professionals who are moving to a community to
group move frequently, so they advance their career are generally looking to move
are hesitant to buy a house. They to a more expensive house than what they had in
are also more apt to share housing with other their previous community. Elk River must continue
unrelated people of similar age. to ensure that it has adequate choices for those who
are looking for move-up housing that will satisfy their
The entry-level household population in Elk River needs until they are in their late 50s and beyond.
will fluctuate annually. Many Elk River residents Long term, the move-up buyers represent the largest
that graduate from high school move to other age demographic. The variety of move-up housing
communities to attend a university or to pursue options will be important to these groups.
job opportunities. In the long term, unless current
conditions and trends change, Elk River will not Empty Nesters
see an increase in the 15 to 24 year old age Empty nesters are generally in
group, rather a significant decrease in that sector. C their 50s and 60s. Often, their
Nevertheless, there will always be a strong need to children have moved out of
provide affordable housing for people of all ages.
their house and left them with
a larger house than needed.
First Time Homeowners Empty nesters often want to
First time homeowners are typically in their 20s — live in a smaller house, like
and 30s. They are usually "move-up" renters, a townhouse, that has less
meaning they "move up" from an apartment to a maintenance. This type of
home. They are often young families, or single smaller house is located within the community. Empty
individuals. They are prone to moving within nesters wish to maintain the friend, family, service
several years of buying their first home for several and recreational connections established over the
reasons including increased financial resources previous decades.
allowing them to move to more expensive
housing, children may require larger housing, and As the baby boom generation moves into this age
job opportunities may require that they move to group, this population will likely increase in Elk River.
another community. Interviews with persons familiar with the rental
market in Elk River indicate there has been a notable
increase in apartment rentals in Elk River by members
of the baby boom generation.
78 / Chapter 7: Housing
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IRV Seniors Affordable Housing
+ Those in their 80s and older
are often looking for low Affordable housing is important to a strong economy
maintenance or assisted and a healthy community. Increasingly, housing is not
4 living housing. Elk Ridge affordable for many working families and the lack of
Manor provides apartment affordable housing for people of all ages and incomes
and townhome living with causes families stress, dampens productivity and stifles
f
24-hour maintenance and job growth. Various organizations define "affordable
on-site management with housing" in many different ways. The United States
opportunities for aging seniors. Department of Housing and Urban Development (HUD)
Guardian Angels also provides generally defines housing as affordable if it costs less than
a continuum of services for seniors including assisted thirty (30) percent of a household's income. However,
living, long and short term care, hospice, and senior HUD's Section 8 Income Guidelines are the basis for most
housing options in Elk River. As the population ages, affordable housing programs. Section 8 guidelines define
Elk River must continually ensure that it has adequate low and moderate incomes on a sliding scale, depending
housing to meet the needs of seniors. on the number of persons in the family. For example, a
four person household is considered "moderate income"
The number of empty nesters and seniors, coupled if their family income is eighty (80) percent of the area's
with their increasing level of activity, will drive median family income.
housing, transportation, recreational and service
needs into the next 30 years. Elk River should It is noted most housing affordability programs and data
strive to be a senior-friendly community that values place emphasis on creating owner occupied units at eighty
the contributions of seniors, promotes positive (80) percent of the median family income (moderate
intergenerational interactions, considers the needs of income) and rental units at fifty (50) percent of the median
seniors in community planning, supports the efforts of family income (low income). Since low income persons are
seniors to live independently, and acknowledges the typically renters, the definition of "low income" is tied to
role that family, friends, and neighbors play in the life the number of persons in each unit. As of spring of 2013
of seniors. this study identifies "affordable owner occupied units"
as those affordable for moderate income families (eighty
Special Needs (80) percent of median income). Affordable rental units
Housing for those with special are based on fifty (50) percent of the median income and
needs includes housing for those reflected on a per capita and per family basis.
with mental and/or physical Further housing analysis is desired to determine future
disabilities or health issues housing demands and needs in Elk River.
' and those who are in need
of temporary or transitional It's very important to note that the definition used in
housing. The number of people with special housing this Study of "affordable" in terms of a dollar amount
needs is expected to increase as the population of Elk will continue to change as the cost of living increases
River continues to age. and interest rates change. Therefore, the City should
periodically review income/housing statistics and update
the definition as warranted. Factors such as interest rates
will impact housing affordability.
Chapter 7: Housing / 79
Elk River Comp ehensive Plan
Income b Age of Householder Table 7-L: Household Income by Age of Householder -
Y 9 2011
Looking at income data is also important when Under 25 25-44 45-64 65+
predicting future housing demands in the City Income No. Pct. No. Pct. No. Pct. No. Pct.
of Elk River. In 2000, the median household
income was $58,114 and the largest employment Less than 0 0% 0 0% 30 1% 42 3%
industries were educational, health and social $10,000
services, manufacturing, and retail trade. By $10,000 to 19 8% 130 4% 34 1% 118 9%
2011, the median household income increased $14,999
significantly to approximately $70,224 and the $15,000 to 18 7% 282 9% 189 6% 190 14%
top employment industries were the same. The $24,999
total population in 2010 age 16 and over was $25,000 to 31 12% 121 4% 53 2% 315 23%
approximately 16,705, of which approximately $34,999
75.6% were considered to be in the labor force. $35,000 to 47 19% 423 13% 289 9% 251 19%
The unemployment rate in the City of Elk River $49,999
in 2010 was approximately 5.5%. During this $50,000 to 116 46% 637 20% 872 27% 177 13%
same time, Minnesota had an unemployment rate $74,999
of about 4.9%. Refer to Table 7-L: Household $75,000 to 0 0% 891 27% 485 15% 142 11%
Income by Age of Householder-201 1. $99,999
$100,000 to 21 8% 536 17% 889 27% 78 6%
$149,999
Table 7-M: Elk River Median Family $150,000 to 0 0% 126 4% 279 9% 21 2%
Income $199,999
Annual Household Income Number of Pct. $200,000 or 0 0% 97 3% 118 4% 11 1%
Households in More
Category
Less than$10,000 125 2.1% TOTAL HHs 252 100% 3,243 100% 3,238 100% 1,345 100%
$10,000 to$14,999 122 2.1%
$15,000 to$24,999 260 4.4% Source: U.S. Census Bureau (2007-2011 American Community
Survey)
$25,000 to$34,999 290 4.9%
$35,000 to$49,999 604 10.2% Income distributions as reported by the U.S. Census Bureau can
$50,000 to$74,999 1,145 19.3% be compared to affordability standards to determine how many
households and families in the City of Elk River may require
$75,000 to$99,999 1,235 20.8% affordable housing. Table 7-M: Median Family Income depicts the
$100,000 to$149,999 1,502 25.3% number of households that may require affordable housing (based
on family income) as shown in the shaded area. 1,401 households
$150,000 to$199,999 491 8.3% (23.6%) have median family incomes of less than 80% of the
$200,000 or More 172 2.9% median family income.
TOTAL HI-Is 5,946 100.0%
Source: U.S. Census Bureau (2007-2011
American Community Survey)
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n
Neighborhood Preservation Homeowner's Associations
Creating and maintaining strong neighborhoods is a key Homeowner's associations will play an increasingly
important role in neighborhood sustainability. A
ingredient of the vision for Elk River. Neighborhood issues homeowner's association is responsible for the
take several forms in context of the Comprehensive Plan. maintenance of all common property in townhome
developments. An association is also established
Sustainable Neighborhoods to operate and maintain the shared septic system
The future role of the City in neighborhood in cluster subdivisions. Elk River will continue to
preservation can be diminished by quality planning, see growth in both of these areas.
design, and construction. Some guidelines for The public policy implications of homeowner's
designing sustainable and livable neighborhoods associations lies with long-term financial viability.
include, but are not limited to: If associations do not implement plans for future
New housing development should be consistent capital replacement, then the City may face
with the and style t involvement in alternative solutions. Homeowner's
y type of housing in the
surrounding neighborhoods. typically demand and pay for current maintenance
services. The ability to finance long-term,
Subdivision design, standards for public replacement improvements is more difficult. In
improvements, layout of public parks, and townhome neighborhoods, an association is
orientation to the natural environment are responsible for the eventual replacement of private
important factors in defining place. streets, roofs, and exteriors. The sewer system
Street design and use of pedestrian trails and is the primary financial obligation for a cluster
sidewalks can be used to promote a greater degree neighborhood.
of connection between neighborhoods. A well run association employs a dues structure
Good transportation planning and related capital that builds a replacement reserve. Without
investment help to minimize traffic on local streets. adequate reserves, an association may not be
able to undertake needed capital improvements in
Seeking these qualities in initial design and future years. Failure to reinvest in the common
development should help to promote strong property leads to a deterioration of these
neighborhoods and minimize future maintenance neighborhoods. With cluster subdivisions, the lack
issues that require public solutions. of funding may have environmental consequences.
Chapter 7: Housing / 81
Elk River Comprehensive Plan
Maintaining Neighborhoods
Existing neighborhoods, particularly older ones, are an
important part of the fabric of the community. These
neighborhoods define the character and the heritage
g of Elk River. Older neighborhoods provide lower cost
housing than new developments. Maintaining housing
quality in these areas is an essential part of providing
affordable housing.
OK �OVTH
T - _ There are several aspects of maintaining
neighborhoods. One of the desired by-products of
u, building strong neighborhoods and community is pride
in property. This sense of pride leads to a personal
value in the maintenance of buildings and grounds. All
mat R other approaches are more difficult when maintenance
A is not important to the property owner.
Economics is part of the maintenance equation. As
more income is required simply to obtain housing, less
.X funds are available to pay for maintenance activities.
i Current low interest rates help this situation by making
home equity loans more affordable. Higher interest
rates not only reduce the affordability of debt for home
improvements, but require more income for the same
housing.
Similar constraints apply to rental housing. The
ability to finance building maintenance comes from
rent income. If the ability to charge an adequate rent
is constrained by market forces, then maintenance
activities get deferred.
In considering Historic Preservation and neighborhood
revitilization projects, there is a difference between the
correction of deferred maintenance and the correction
of functional obsolescence. Programs developed to
address housing and preservation goals must recognize
this distinction, and the cost of each in the long term.
The City will assess its involvment with such projects
on a case by case basis.
Market Gaps
Market forces are not likely to fill all housing needs in Elk River. Gaps in the operation of the housing
market point to potential public roles. Market gaps tend to change over time with demographic and
economic changes in the community. City housing initiatives should focus on identifying these gaps
and determining the appropriate responses. Gaps may relate to the need for specific types of housing.
Gaps are also linked to mortgage financing and market conditions. An ongoing concern is the down
payment and other factors needed to qualify for a mortgage loan. The city and local banks can pursue
programs to promote homeownership.
Finally, the physical deterioration of structures often creates a barrier to private investment. Rather than
fix the problem, the market avoids the unit. If unchecked, blight may spread to adjacent properties.
82 / Chapter 7: Housing
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Elk Elk River Comp ehensive Plan
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Housing Programs and Organizations
Many municipal powers related to housing come from the housing and redevelopment authority
statues as outlined in Minnesota Statutes, Section §469.001 to §469.047. The Housing and
Redevelopment Authority (HRA) Act lists the following activities as public purposes:
To provide a sufficient supply to adequate, To remedy the shortage of housing for
safe, and sanitary dwellings in order to low and moderate income residents, and
protect the health, safety, morals, and to redevelop blighted areas in situations
welfare of the citizens of the state; in which private enterprise would not
To clear and redevelop blighted areas; act without government participation or
subsidies; and
To perform those duties according to
comprehensive plans;
Public participation in activities intended to meet the purposes of sections 469.001 to 469.047
and the exercise of powers confined by sections 469.001 to 469.047 are public uses and
purposes for which private property may be acquired and public money spent.
The City of Elk River intends to partner or coordinate with various housing programs and
organizations that can help address the City's housing needs. Some housing programs available
to Elk River residents include:
Central Minnesota Housing Partnership Tri-Cap Family Homeless Prevention
Programs. The Central Minnesota Housing and Assistance Programs. These funds
Partnership helps to maintain affordable are available to families or singles that
housing through a variety of acquisition and are homeless or are at imminent risk of
rehabilitation programs including the Home homelessness, or living in shelters to
Stretch, First Time Homebuyer Program, The stabilize their lives by providing services
Central Minnesota Community Land Trust, such as budget counseling, assisting with
Acquisition/Rehabilitation Program, Small damage deposits or first month's rent.
Cities Development Program and Rental MN Center for Energy & Environment
Rehab Deferred Loan Pilot Program (RRDL).
Programs. Elk River is an Energy City
Minnesota Housing. The mission of with ample opportunities and tips
Minnesota Housing is to finance and for homeowners looking to reduce
advance affordable housing opportunities consumption, save money, and rehabilitate
for lower and moderate income their homes in the process. Programs
Minnesotans. Minnesota Housing can available through MN Center for Energy
help finance new affordable housing & Environment include the Home Energy
opportunities and preserve existing Program, Fix-Up Fund Program, and Save $
affordable housing. Now Program.
Tri-Cap Home Repair Loan. The Home Not-for Profit Organizations. Not-for profit
Repair Loan provides homeowners resources organizations including, but not limited to,
to make repairs to their homes. These loan Habitat for Humanity can help Elk River
funds may be used to make homes more address its housing needs.
livable, accessible and energy efficient.
By utilizing these available resources, Elk River can leverage viability and healthy investments
in the City. The City will continue to assist the community in increasing home values and
strengthening neighborhoods through investment and encouraging energy efficiency.
Chapter 7: Housing / 83
Elk River Comprei,,.ve Plan
Implementation
Key actions or strategies that are intended to accomplish the objectives for housing include: encouraging strong
residential property maintenance, supporting safe and attractive neighborhoods, promoting green building techniques,
ensuring new housing and housing renovation, respecting neighboring properties and the overall character of the
neighborhood, and promoting opportunities for "aging in place" enabling existing residents to stay in their homes
longer. Further implementation strategies include:
Revise the Zoning Ordinance as necessary to ensure review fees, increased density, or administrative flexibility
that any infill development or further subdivision to grant minor variances (such as setback variances) that
of large lots will not adversely affect the existing would support green building techniques and renewable
character of the neighborhood. energy sources.
Study the possibility of allowing accessory dwelling Review and modify ordinances as necessary to promote
units in the City of Elk River to help promote affordable building compatibility with the site. For example, strive to
housing and to help those who may need physical ensure that development does not unnecessarily remove
assistance, including elderly residents. mature trees or other desirable site features.
Ensure the City has adequate and appropriately zoned Strive to identify, study, and map unique residential
land to meet the changing housing needs of the neighborhoods in Elk River. To the extent feasible,
community. work with the neighborhoods to identify the qualities
Continue to monitor and enforce timely progress of the neighborhood that they would like to see
related to residential building permits. Do not preserved. As necessary, modify existing ordinances
allow building projects that have been started to go or develop guidelines to ensure that future renovations
unfinished for an excessively long period. and development are consistent with the desired
neighborhood character.
Study the need for, and if appropriate, implement a
residential rehabilitation program using state funding, Before applying for the necessary development approvals,
community development block grants (CDBGs), or encourage the developer or landowner to conduct a
other suitable resources to provide rehabilitation loans neighborhood meeting to review proposed development,
and grants for residents in need. redevelopment, or renovations that my impact the
neighborhood character. Offer meeting space at City Hall
Continue to monitor and enforce home occupation or other community facilities as a means to support this
ordinances in the city to ensure safe and healthy effort.
neighborhood conditions.
Where guided in the Land Use Plan, promote the
In accordance with the policies of this Comprehensive redevelopment of existing vacant or underutilized
Plan, coordinate the effective and cost effective commercial property to include moderate to high density
extension of municipal sewer and water to residential residential housing. In particular, promote mixed
areas that are not served by public utilities. commercial and moderate to high density housing in
To the maximum extent feasible, ensure the the downtown area and near future transit hubs in the
preservation of existing natural features and promote City. Ensure that housing is consistent with the desirable
the sensitive integration of natural features, such character of the area.
as wildlife corridors, into existing and proposed Promote flexible development standards and innovative
development. development techniques hat encourage development,
Support neighborhoods in their efforts to beautify redevelopment, and renovation of existing housing without
their homes and neighborhoods. jeopardizing the desirable character of the area.
Identify and remove possible barriers in the zoning Study the feasibility and desirability of allowing multiple
ordinance and subdivision regulations that discourage types of housing units in existing neighborhoods that
or prohibit the use of green building techniques and/or are currently restricted to single family dwellings. For
renewable energy sources. example, explore the possibility of allowing outright, or as
Study opportunities to provide incentives that a conditional use, duplexes and/or twin homes in single
encourage the use of green building techniques and family districts.
renewable energy sources, as appropriate. Incentives Conduct a housing market study based on the City's
may include expedited review time, reduction of goals and future needs.
84 / Chapter 7: Housing
Elk Elk River comprehensive Plan
R1VeY
■
■
r�
/ Introduction
/ The City of Elk River's infrastructure systems are the framework for the
/ City's basic operations and future growth. These systems operate and
V''
provide basic support for the lives of Elk River's residents. Ultimately,
- a key principle of this Chapter is to provide infrastructure investments
that correspond to the community's growth potential. As Elk River
develops, the development should be managed to make the most
efficient use of existing and future investments in infrastructure and
public facilities.
The Comprehensive Plan sets the pattern for future development
within the City of Elk River, which ultimately defines the parameters
for municipal utilities needed to support this new development.
Alternatively, the limitations of the utility system influence the type,
form and location of future development.
Chapter 8: Utilities / 85
Elk River C--=-F-Fens< Fly:
N '
.k3 tom_
,.
The utility system represents significant public investment and as
such, continued coordination between community development and
CITY HALL utilities is essential to make the best use of financial resources. The
M 'C'PAL UTILITIES
UNICI
s�
OLICE DEPARTMENT
City must determine the appropriate timing for any public financing
Rnmr
DEPARTMENT
of new service extensions and improvement, considering the land
use policies set in place and community development goals of the
Plan. Encourage development and growth in areas contiguous to
existing development and areas currently served by infrastructure will
maximize the efficiency of City services.
The City of Elk River has a land area of approximately 28,000 acres within the city limits. The
City has delineated this area into rural areas (no municipal water and/or sewer services provided)
or urban service areas (municipal water and/or sewer services provided). The City provides
water and sewer services to residents within the urban service area as shown in Figure 8-1:
Urban Service Area. It is the City's belief that over the next 20 years the urban service area will
be fully developed and that additional land areas will be added as shown in Figure 8.2: Future
Development Within the Urban Service Area and Figure 8.3: Future Development Outside the
Urban Service Area.
Although many of Elk River's growth areas, as designated in Chapter 5, presently include
adequate infrastructure, other growth areas will require extension and improvements. As these
areas develop/redevelop, the City should invest in new infrastructure with care; consideration
must be given to the total public and private costs of new services. Public dollars must be spent
wisely in providing these services. The boundary should only be expanded if the City believes
that sufficient sewer and water treatment capacity will be available to serve property within the
urban service area and the development (and redevelopment) within the expansion area. The
implications on treatment capacity should also be considered with redevelopment projects and
changes in land use that will alter demands on the utility system.
The Elk River Municipal Utilities provides electric and water services to Elk River and surrounding
areas and is responsible for the construction, operation and maintenance of these systems.
The Utilities Commission serves as the governing body for the Municipal Utilities. Wastewater
treatment and storm water management are the responsibility of the City Council and City staff.
The goal of this Chapter is not to present a "plan" for the expansion and operation of the
municipal utility system, rather to provide citizens, designers, City staff and potential developers
with the knowledge to make more informed choices.
86 / Chapter 8: Utilities
. � 11'
Elk Elk River Comp ehensive Plan
River
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Figure 8-1. Urban Service Area
Chapter 8: Utilities / 87
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Elk River Comprehensive Plan
Inventory and Analysis Great River Energy plant and has been in operation
since 1977 with several upgrades since. Wastewater
Sanitary Sewer improvements since 2004 include upgrades to the
wastewater treatment facility in 2005, sand filter
Elk River's desired future land use pattern must be upgrades in 2006, and upgrades to various lift
tied closely with a cost-effective wastewater service
strategy. The City must be certain in determining the stations every year.
pattern of sanitary sewer interceptors, lift stations, In February 2013, a Wastewater Treatment Facility
and force mains to complete its development pattern. Plan was completed to evaluate the capacity of the
Moreover, the City must ensure that costs of these existing facility and the ability to reliably achieve
improvements are equitably distributed and services the reduced effluent limits at design flows and loads
are provided in a planned, phased sequence that and to develop a plan for future plant modifications.
promotes development. As improvements to the facility are presented, the
The sanitary sewer collection system in the City of City should follow the recommendations of the
Elk River includes over 77 miles of lines. As a result, Wastewater Treatment Facility Plan.
21 lift stations are needed to transport sewage to The current plant has a maximum treatment capacity
a wastewater treatment facility that the City of Elk of approximately 2,200,000 gallons per day. On June
River owns and operates that serves the residents of 23, 2012 the highest daily flow was recorded at
Elk River as well as commercial and industrial users 1,930,000 gallons. Table 8-A: Wastewater Treatment
located within the community. The plant is located Facility Average Daily Flows 2006-2012 shows the
between Highway 169 and the rail line, north of the changes in annual daily flow since 2006.
Table 8-A: Wastewater Treatment Facility Average Daily Flows 2006-2012
1,260,000
1,240,000
c 1,220,000
1,200,000
0 1,180,000
L
?' 1,160,000 -
1,140,000
� 1,120,000 -
Q
1,100,000
1,080,000
2006 2007 2008 2009 2010 2011 2012
a Gallons 1,142,428 1,183,294 1,211,120 1,243,078 1,188,985 1,193,980 1,171,000
90 / Chapter 8: Utilities
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Elk Elk River Comprehensive Plan
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The size and location of the sanitary sewer collection system influences the ability to expand the system, which
results in a limit to the growth and development of land. Areas outside of the urban service area are included in this
limitation, the area currently being mined as identified in Figure 5-1 : Existing Land Use is a critical area.
Projected areas of development and flow from un-sewered connections from the Wastewater Treatment Facility Plan
were used to estimate the average daily flow (ADF) at 3,980,000 gallons for the year 2035. Improvements to the
wastewater treatment facility will be necessary to meet the requirements for this future planned growth to meet
the design approved by the City. Improvements to the wastewater treatment facility are anticipated to occur over
the next several years as outlined in the Wastewater Treatment Facility Plan and should be incorporated into the
City's CIP accordingly. Wastewater flows will be monitored by the City and Treatment Facility improvements will be
completed as flows increase.
Elk River ~`
Municipal Utilities
Water System ERMU's water system contains over 78 miles of
water mains and 4 water towers that have a total
A key element of this section of the Plan is to ensure capacity of approximately 4,000,000 gallons of
that the City of Elk River provides a safe and adequate water. Peak day water pumped in 2012 was on July
water supply. A sufficient water supply is a fundamental 16th with 4,420,000 gallons and 2012 water sales
prerequisite for community growth and sustainability. were 727,912,000 gallons.
Obtaining, protecting and distributing drinking water that System improvements undertaken by ERMU since
meets health standards is one of the most important
2004 include: added 3 miles of main, changed
functions performed by a community. In addition, water
over 4,000 meters to automated meter reading,
pressures must be maintained for health, convenience, completed a 20 year wellhead protection plan, and
and to meet multiple and simultaneous demands by local
modified pressure zones in the City to optimize
residents.
existing pressure by installing RPZ valves. ERMU
It is important to also maintain adequate water pressure also installed additional well filter equipment to better
and supply for fire protection. The City must maintain serve the long term growth of the City.
and expand its present system to ensure reliability and
Water efficiency and conservation efforts have been
meet increasing water demands and quality standards.
increased as the concern for the longevity of the
Strategic improvements to support desirable growth
aquifers in the state. The water utility implemented
patterns will be critical as well. a rebate program to promote the installation of Smart
ERMU operates the water system for the City of Elk River Irrigation Controllers, implemented tiered pricing
and has done so since its creation on October 4, 1945 by structures to promote water efficiency, and provided
the City Council. Water is supplied from 8 wells ranging rebates and rate schedules for customers that
from 225 to 406 feet in depth with water drawn from the irrigate using the most efficient equipment available.
Mr. Simon Hinckley aquifer. The wells range in capacity There are also programs for smaller customers that
from 650 to 1,300 gallons per minute (gpm). The water promote rain gardens and water barrels for residential
utility is positioned well for the long term growth with the customers. These efforts support the long term
capability of providing over 8 million gallons of water per growth of the City and water supply.
day to local residents and businesses.
Chapter 8: Utilities / 91
Elk River Comprehensive Plan
T.
ELKRNER
EN-RGYCITY
Electric System
The Elk River Municipal Utilities operates an electric system in the City of Elk River that provides service
to approximately 44 square miles as shown in Figure 8-4: Electrical Distribution Territory Map. The ERMU
purchases power from Connexus Energy and constructs and operates the distribution system, including lines
and substations, needed to provide power in its service area. There are approximately 315 miles of electric
lines throughout the City, of which approximately 70% are underground. As part of the long term growth
plan for the City of Elk River the utility has added an additional 65,000 kW of substation capacity to the
distribution system since 2004.
Elk River Municipal Utilities (ERMU) received national recognition in 2011 when awarded a high honor for
having reliable and safe electric service. There are more than 2,000 public power utilities and ERMU is one of
only 176 receiving the Reliable Public Power Provider (RP3®) award. The award is based off of four categories:
reliability, safety, workforce development and system improvement.
ERMU's reliability index numbers reflect the condition of its robust electrical system as well as its
commitment to long term growth and superb customer service. The ERMU reliability numbers are
comparing extremely well to other electric utilities in Minnesota. Elk River Municipal Utilities' 2012
reliability numbers were as follow:
1. ASAI (average service availability index) is 3. SAIDI (system average interruption duration
a measure of the average availability of the index) is defined as the average interruption
sub-transmission and distribution systems to duration for customers served during a specified
serve customers. It is the ratio of the total time period. It is determined by summing the
customer minutes that service was available customer minutes off for each interruption
to the total customer minutes available in during a specified time period and dividing
a time period. This is normally expressed that sum by the average number of customers
as a percentage. ERMU's 2012 ASAI is served during that period. The unit is minutes.
99.999% Availability. This index enables the utility to report how
2. CAIDI (customer average interruption many minutes' customers would have been out
duration index) is defined as the average of service if all customers were out at one time.
length of an interruption weighted by ERMU's 2012 SAIDI is 7.7 minutes.
the number of customers affected. It 4. SAIFI (system average interruption frequency
is calculated by summing the customer index) is defined as the average number of
minutes off during each interruption in the times that a customer is interrupted during
time period and dividing this by the number a specified time period. It is determined
of customers experiencing one or more by dividing the total number of customers
sustained interruptions during the time interrupted in a time period by the average
period. The resulting unit is minutes. The number of customers served. The resulting unit
index enables utilities to report the average is "interruptions per customer." ERMU's 2012
duration of a customer outage for those SAIFI is 0.117.
customers affected. ERMU's 2012 CAIDI is
66 minutes.
92 / Chapter 8: Utilities
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Elk Elk River Comp ehensive Plan
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In 2012, the electrical peak demand was at 59,620
Table 8-C: Electric Generation Units kW with the annual energy sales of 273,455,846
Unit Capacity Horsepower Date Fuel kWh. The Landfill gas generation facility contributes
No. (kw) Installed approximately 26 million kilowatt hours, or 9% of the
1 550 735 1947 Diesel Fuel City's needs.
2 550 735 1947 Diesel Fuel ERMU will need to add electric substations and
modify or improve some of the existing substations
3 3,000 4,100 1961 Diesel Fuel as development occurs.
&gas
4 5,000 6,911 1971 Diesel Fuel
&gas
Landfill 3,200 4,600 2002& Landfill Gas
2006
Table 8-C: Electric Generation Units
1Z
M V
`-_ .'a:`�� :�..srt.". - ,s," / ✓�F .,w -, .-1 l_ ,� IDI. Td
Stormwater Management
Many of the goals and smart growth principles that are discussed throughout this Plan can only be fully achieved
when issues surrounding stormwater management and environmental protection are considered as central to the
planning process.
The City of Elk River conducts surface water management planning to determine the needs and approaches for
managing stormwater systems throughout the community. Managing stormwater and surface water protects and
improves the quality of our lakes, streams, and rivers. It also helps to control flooding.
The formal stormwater system consists of catch basins, pipes, ditches and detention ponds. Wetlands and other
natural systems play an important role in effective stormwater management and further analysis of these systems
is outlined in Chapter 11: Environmental Resources.
With a lack of Watershed Districts or Water Management Organizations within the County, the City has been
utilizing the existing Stormwater Ordinance and the existing Stormwater Pollution Prevention Plan (SWPPP)
for water management issues. The City completed an update of the SWPPP and developed a Surface Water
Management Plan in November of 2013. The implementation plan within the new document should be followed
for purposes of future planning related to stormwater management.
Chapter 8: Utilities / 93
Elk River Comprehensive Plan
Elk
River
.
Implementation
Continue to review and update, as needed, the sanitary sewer and water
supply system plans.
Encourage, where feasible, existing above ground utilities to be converted to
underground systems or to be screened if the utilities must be located above
ground.
Maintain adequate zoning regulations for antenna towers and
telecommunication equipment, consistent with federal law.
Continue to coordinate with telecommunications companies on providing
services throughout the City where feasible.
Develop community utility facilities to the same aesthetic, environmental
and development standards required for private property.
94 / Chapter 8: Utilities
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■
7
000
Introduction
The City of Elk River's vision includes recognition of the area's
natural beauty and seeks to promote clean air and water and blend
the built and natural environments. The City's environmental and
natural resources work in concert with the people and development
in the City to make Elk River a unique place. This Chapter of the
Plan provides a basis to maintain and improve environmental quality
in Elk River as the City seeks a sustainable balance between man-
made and natural systems.
Chapter 9: Environmental Resources / 95
Elk River-__=arl--,Q e F1 1I
,,� r, (•, r J:� ".x?`} �.''�j Alr J;L ��r�f+'�' riJA' tr-
I �C
u
r_
Implementation
The following statements reflect specific parts of the City's vision relating to natural environment and resources.
Undertake a more detailed greenway corridor Manage the community's wildlife resources to
planning process within the City (NRI plan). The protect and preserve native habitat and wildlife,
purpose of this would be to identify goals of and to protect human safety.
the greenways within the City, identify where Work with and encourage projects designed to
public ownership could be incorporated into the reclaim contaminated lands and restore natural
greenway, incorporate the trails system, identify resources where appropriate.
areas where ecological restoration may be feasible,
consider opportunities for recreation and pedestrian Continue programs to regulate the use of private
movement, and target projects for grant funding. individual sewage treatment systems per County
Some of this will occur with the update to the and State requirements and to protect ground and
Parks System Plan that is currently underway, but surface water within Elk River.
should be expanded upon to ensure preservation Continue monitoring and regulation of quarrying
and enhancement of these corridors is sustained. of resources such as sand, dirt, and gravel to
Continue to enforce all environmental protection mitigate potential visual and environmental
zoning standards related to restrictive soils, impacts such as noise, erosion and dust.
woodlands, wetland, floodplains, shorelands, Continue to manage the impacts of land uses
bluffs, steep slopes and erosion control, to such as aggregate mining, landfills, and others on
preserve and protect sensitive and other natural the environment by collecting appropriate fees or
areas of community importance. One key part other funds to mitigate the impacts of the use on
of this will be to update/review ordinances per the community's infrastructure.
NRI recommendations to review park dedication Continue and expand environmental education
requirements, data that is required for preliminary and awareness programs to include the proper use
platting, tree preservation. and disposal of such pollutants such as hazardous
Include the city-owned natural areas recommended waste, pesticides, non-point source pollutants, and
for management into the City's CIP. This will fertilizers. Encourage public and private recycling
allow the city to explore and potentially be eligible and source reduction programs.
for grant funds. Promote the efficient use of land to encourage the
Invasive species can negatively impact native protection of natural and energy resources where
habitats within the City. The City will work to appropriate.
manage and control invasive species if funding is
available.
Encourage and assist businesses, organizations,
and citizens in their efforts to enhance and improve
the community's natural environment and to
conserve natural resources.
96 / Chapter 9: Environmental Resources
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Existing Natural Resource Information
Natural resources can be defined as materials or substances such as gravel, forests, water, and land that occur in
nature and can be used for economic benefit. This economic benefit can be characterized as the benefit of using
rich gravel resources to support the local and state economy as well as preserving open spaces to enhance the
community and wildlife. Elk River's natural resources, including the Elk and Mississippi Rivers, bluffs, lakes, wetlands
and wooded areas, natural open space and views, all add to the unique and defining characteristics. As future
development and redevelopment occurs, Elk River's challenge will be to link these new and redeveloped areas to its
existing fabric, with an eye toward the existing natural resources.
There are many sources of existing information available to the City in reviewing and developing a plan related to
natural resources. These resources include the following:
National Wetland Inventory (NWI): Mapping provided Minnesota Land Cover Classification System: As part
by the US Fish and Wildlife Service that provides of the City's Natural Resources Inventory project, the
general information about the location and type of existing land cover was mapped within the City using
wetlands. The NWI information is shown in Figure 9-1. the Minnesota Land Cover Classification System
Department of Natural Resources (DNR) Public (MLCCS). This is a methodology standardized by
Waters/Wetlands Inventory (PWI): The DNR has state agencies to classify land cover and identify
jurisdiction over larger wetland and open water native plant communities.
waterbodies. These water bodies are also shown on City of Elk River Natural Resources Inventory
Figure 9-1. (2004): The Elk River Natural Resources
Land use inventory: The City's land use inventory Inventory is incorporated by reference into
provides guidance on proposed land uses for the the Comprehensive Plan. This report contains
area. background information on the landscape history
of Elk River as well as the results of the MLCCS
Floodplain Data: The Federal Emergency survey. This data is more accurate and up to date
Management Agency (FEMA) provides maps that than the County Biological Survey Data, although
show the floodplain within a community. Generally, it should be noted that not all areas within the
development is not allowed or is restricted in these City granted property access to field review the
areas. The floodplain is shown in Figure 9-2. land cover.
Minnesota County Biological Survey Data (Sites Connection opportunities map: The map was
of Biodiversity Significance): The DNR, through developed as part of the 2004 Comprehensive
the County Biological Survey, has identified areas Plan and provides information about potential
with varying levels of native biodiversity that may greenway connections.
contain high quality native plant communities, rare
plants, rare animals, and/or animal aggregations. Natural Resource Inventory Conceptual
A biodiversity significance rank (outstanding, high, Greenways/Corridors Map: A greenway is
moderate, or below) is assigned on the basis of the generally defined as a linear corridor exhibiting
number of rare species, the quality of the native plant a natural environment. Focus is on protecting
communities, size of the site, and context within ecological resources and providing wildlife and trail
the landscape. MCBS Sites that are found to be corridors. Secondary use is for trails, assuming
disturbed are given the Biodiversity Significance rank that they can be integrated without compromising
of "Below." Figure 9-3 shows this information. The the integrity of the natural systems.
rating code is based on the data provided by the DNR Gravel Resources: Elk River is rich in gravel
at the time of the survey and may or may not still be resources and gravel is an important natural
applicable. resource for the economy of Minnesota.
Chapter 9: Environmental Resources / 97
Elk River Comprehensive Plan
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Natural Resource Guidelines
The background information that has been collected and developed by the City of Elk
River provides a wealth of natural resource data for the City and its planning efforts.
Information from public input processes indicated a desire to maintain open space and
greenways as well as to provide connections to various areas within the City and is
further defined in Chapter 9: Parks, Trails and Open Spaces. The following guidelines
are intended to provide direction to the City with respect to future planning efforts.
1. Balance the protection of natural resources with economic development to
maintain the vision of Elk River.
2. Preserve significant natural resource areas where applicable by implementation
of greenway connections through development, park dedication, as well as
identifying grant opportunities to implement or enhance greenways and natural
resources.
3. Protect and enhance air and water quality to provide a livable and sustainable
community.
4. Provide opportunities and connections to orient the City to its connection to the
Mississippi River and Elk River.
5. Continue to allow gravel mining in the mining areas to make full use of these
natural resources.
98 / Chapter 9: Environmental Resources
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Chapter 9: Environmental Resources / 99
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100 / Chapter 9: Environmental Resources
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Figure 9-3. County Biological Survey
Chapter 9: Environmental Resources / 101
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Introduction
In the fall of 2013, the City began the process of developing a
Parks and Recreation Master Plan The final document resulting •
from that planning process should be incorporated by reference to
this section of the comprehensive plan.
CD
CD
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Chapter 10: Parks, Recreation, Trails, and Open Space/ 103
Elk River Comprehensive Plan
Personnel should be planned for, hired and trained
prior to the date of actual need to ensure that a
.1 consistent level of service is maintained as park
facilities are enhanced and local recreational programs
or services are expanded. Funding and resources
needs should be balanced.
s Guiding Principle #3 - Plan and Design
Parks for Their Entire Lifecyc%
An important consideration in implementing the
system plan is the expected "lifecycle" of each
component or park unit, which is the time frame
Guiding Principles between when it is initially developed until it is
redeveloped or refurbished. In most cases, parks have
In early 2013, the Parks and Recreation staff prioritized an effective "lifecycle" of 15 to 20 years, although
city services into the following three priorities: this will vary substantially depending on the specifics
Maintenance — take care of what we have of the park in question. In addition, recreation trends
Preservation of open space and demand fluctuate as some activites become more
or less popular or interest/demographics change. It
Take care of our youth is important to plan for evolving recreation needs
These are viewed as core services which are defined as by having flexible recreation spaces/facilities where
the department's basic civic duty and prime value to the feasible.
community. The forthcoming guiding principles support Guiding Principle #4 - Clarify Park
these goals of providing a dynamic high quality system
that is well-positioned to meet the needs of current and Roles and Classifications
future residents of Elk River. The system plan uses and a variety of park
classifications to assure that the spectrum of
Guiding Principle #1 - Implement a recreation needs are being served within the larger
Balanced System Plan that Provides a system. The park classifications should follow
Consistent Level of Service within Each guidelines and criteria set by national planning
Geographic Area of the City organizations to simplify and define the roles
parks play and the services they provide. Those
As the City of Elk River continues to grow into the northern national standards can be adapted to meet the
area of the City, it will be important to provide residents unique needs of Elk River. This will aid the City in
with a cross-section of recreational opportunities from establishing long-term maintenance costs, community
which to choose. It appears there are some overlapping expectations, and implementation. This principle
service areas within the existing park system. This indicates should be further defined by the Parks and Recreation
there is potentially redundancy within the system and some Master Plan.
parks/recreation features may be unnecessary.
Guiding Principle #5 - Foster
Guiding Principle # 2 - Maintain Adequate Community Involvement at Each Level
Resources to Oversee Development, of System Planning and Implementation
Operations and Maintenance of Parks and
Trails and Administration of Recreational Continuing community involvement in the decision-
Services making process as the plan is implemented is
fundamental to the City being successful in gaining
104/Chapter 10: Parks, Recreation, Trails, and Open Space
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Elk River Comprehensive Plan
residents support for funding initiatives. An 1. Expansion of the trail system will provide
ongoing commitment by the city leaders and staff connections and continuity in the community.
to community involvement in implementing the 2. Facility maintenance needs to be balanced with
system plan should remain a cornerstone of the available resources.
implementation strategy.
3. Consider City-wide and geographic service areas
Guiding Principle #6 - Provide Access within in the City when planning for parks.
to Recreational Activities and Programs 4. Each geographic area will be anchored by a
through Coordinated Services with Local place based brand to bring community together.
Partners 5. Continue to work with local agencies and
adjacent communities on meeting the recreation
Working with local program providers, the City facility needs.
will work to provide the opportunity for residents 6. Plan for and obtain space for future needs.
to participate in recreation activities and programs
through well-designed, effective and cost efficient
recreation programs. The City will continue to provide
programming and will work with other program
providers such as the local school district and youth ,
associations, etc. to address this need and to provide ym z
adequate facilities for programmed use on a fair and
equitable basis.
Framework for the Parks, -' ��, Ik
Recreation, Open Space, and Trail - �--_
System -
The following framework establishes the base set
of parameters that should be considered when
developing a comprehensive and cohesive physical
system plan. The framework serves as a means to
translate the assessment of need and vision statement
into a plan that meets the physical requirements, land
and facilities, which will satisfy community needs.
The framework builds upon the existing park and trail 4'
infrastructure that is already in place within the City,
with the basic precept being to use existing parks and
open space lands to their highest and best uses within
the context of demographic changes and resource
limitations (capital investment and operations/
maintenance funds) that are expected to prevail for
some years to come. This last point is of particular
importance in that meeting residents' desire for quality
facilities within the context of anticipated resources
requires some rethinking of past planning models and
points of emphasis. To that end, the major themes
include:
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Park Classifications Guidelines
As per Guiding Principle #4 the system plan consists of a variety of parks and open spaces defined under various
classifications. Each classification serves a particular purpose in meeting local park and recreation needs. Although
some flexibility is warranted, classifying parks is necessary to ensure a well-balanced system and that all recreation
needs are effectively and efficiently met.
The classifications Elk River should consider when updating the Parks and Recreation Master Plan are based on
guidelines recommended in the National Parks, Recreation, Open Space and Greenways Guidelines (National
Recreation and Parks Association, 1996) and Planning and Urban Design Standards (American Planning Association,
2006), albeit expanded or modified to address circumstances unique to the city. The following table provides an
overview of each classification.
Classification General Description
Neighborhood Park Neighborhood park remains the basic unit of the park system and
serves as the recreational and social focus of the neighborhood.
Focus is on informal active and passive (non-scheduled/
programmed) recreation.
Community Park Serves broader purpose than neighborhood parks. Focus is on
meeting service sector-based recreational needs, as well as
preserving unique landscapes and open spaces.
Youth Athletic Consolidates programmed youth athletic fields and associated
Complex facilities to fewer strategically located sites within the community.
Can also provide neighborhood-use functions.
Community Athletic Consolidates programmed adult and youth athletic fields and
Complex associated facilities to a limited number of sites. Tournament level
facilities. Can also provide neighborhood-use functions.
Conservancy Area Lands set aside for preservation of natural resources, remnant
landscapes, open space and visual aesthetics/buffering. Also
provides passive use opportunities (i.e., nature-type trails,
overlooks, interpretive program, etc.). This also includes lands
set aside for preservation of natural resources and open space
through means other than community preserves. This includes
lands in wetlands and floodplains and an assortment of outlots left
as open space
Greenways Serve as linear corridors exhibiting a natural environment. Focus
is on protecting ecological resources and providing wildlife and
trail corridors. Secondary use is for trails, assuming that they can
be integrated without compromising the integrity of the natural
systems.
Special Use Covers a broad range of parks and recreation facilities oriented
toward single-purpose use - such as a nature center, historic sites,
plazas, etc.
Regional/ County Regional parks and open spaces with a natural resource and larger
Park/ Open Space acreage focus.
Private Park/ Rec. Parks and recreation facilities that are privately owned, yet
Facility contribute to the public park and recreation system.
Chapter 10: Parks, Recreation, Trails, and Open Space/ 107
Elk River Comprehensive Plan
Building Highly Valued Trail System
Four guiding principles provide the foundation for developing a highly-valued trail/pedestrian-way system, including:
Principle #1 : Incrementally fill in gaps and otherwise improve the pedestrian-level public infrastructure to enhance
safety and encourage the use of alternative forms of transportation within neighborhoods and along routes to school.
Principle #2: Focus on interconnections between local and regional trails as the trail system continues to expand.
Principle #3: Improving the overall quality of experience trail users have.
Principle #4: Allow for four-season use of trails where feasible.
Trail Classifications
The trail system plan consists of a variety of trails
and pedestrian-ways/sidewalks defined under various
classifications. Each classification helps translate the TRAIL
aforementioned personal values and principles into an ING
implementable form, with each serving a particular R A
purpose in meeting local needs. The distinction between
classifications is important due to the variability in their
value, which in turn greatly affects the importance
of the system to residents and the degree to which
the various trails, sidewalks, and bikeways will be
used. The classifications applied to Elk River should be
consistent with the MN DNR's Trail Planning, Design,
and Development Guidelines (2007), albeit modified to
accommodate some local nuances.
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Funding Source Description / Overview Probability
State Outdoor The State of Minnesota annually allocates funds for park Very competitive,especially with very tight public
Recreation, LCCMR, acquisition and development projects which meet recreational funding available at all levels. Most promising might be
Legacy Fund,and needs identified by the State Comprehensive Outdoor Recreation Legacy Amendment Funds,especially for parks or trails
Similar Grants Plan.In recent years,Legacy Amendment Fund has emerged as of regional significance.
a legitimate potential funding source for projects of regional or
state-wide significance.Whatever the program,the grants are
competitive and awarded according to project merits.
Land and Water The federal government allocates monies each year to states Funding availability through this program has been
Conservation Fund for public acquisition and development projects.The State of limited in recent years.
Minnesota Administers these grants through the Department of
Natural Resources.
Federal Transportation The federal government allocates monies each year for alternative Funding availability through this program has been
Funds(T-21,RTP,etc.) forms of transportation,which includes bicycle trails that focus on significant in past years.The potential for receiving
transportation. funding for local trails is relatively good.
FeeslEnterprise Funds Minnesota statute allows cities to prescribe and provide for the Becoming a much more relied upon funding source,
collection of fees for the use of any city park or other unit of the especially for singular use facilities ranging from
city park system or any facilities,accommodations,or services ballfields to hockey arenas.
provided for public use therein.
Partnerships Relates to partnerships formed with adjacent cities,the county, Although limited public funding availability is an issue
and school districts to develop,maintain,and operate parks and at all levels,forming partnerships to spread the cost of
recreational facilities on a joint-use basis. providing a specific type of service or facility still has
merit whenever there is an opportunity.
Park Dedication Fees The park dedication fund provides funding for parks as long as Even with periodic adjustments,park dedication fees
community development continues to occur.Any controls imposed alone will not be adequate to fund the system plan to an
on the extent(i.e.,total number of units)or rate of development optimal level.
(i.e.,number of units per year)allowed within the city will limit the
revenue generated under this fund. The City will need to ensure
the fees imposed are consistent with current state statutes.
Donations Donations relates to cash donations,gifts,volunteerism,and Limited potential from a cash perspective,but important
professional services donated to the park for planning,acquisition, with respect to the use of volunteers to offset some
or development purposes. program costs.
Local Sales Tax A local sales tax is a special-purpose tax implemented and levied at As much as the sales tax approach offers high degree
Increase the city level.A local option sales tax is often used as a means of of merit,it must be noted that enacting it requires
raising funds for specific local or area projects,such as improving approval by the State Legislature following requirements
parks and trail within the community. established by state statue. In an ever shifting political
environment,getting this approval is not always certainty.
Park and Trail Bond A Bond Referendum is a way to borrow money to fund capital Although many communities have been successful
Referendum projects and it normally requires voter approval. Collection of the at passing bond referendums to fund park and trail
money is carried out by taxing local property owners. improvements in recent years they have done so by
having a detailed park and trail system plan,completed
community surveys to understand priorities,and have
carried out a marketing campaign that educated citizens
on the monetary impacts and the value added to the city.
Chapter 10: Parks, Recreation, Trails, and Open Space/ 109
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Introduction
Community facilities include parks, schools, health and safety services,
libraries, religious institutions, and similar facilities. They help contribute
to the quality of life in the City of Elk River and the City's ability to
h N maintain and attract businesses, industries, residents and visitors alike.
This part of the Comprehensive Plan provides an inventory and analysis of
existing community facilities and services in Elk River. It also describes
implementation strategies for maintaining and enhancing those facilities
and services.
Chapter 1 1 : Community Facilities / 111
Elk River comprehensive Plan
Planning for community facilities is important for several reasons, including, but not limited to:
Community facilities represent important The future growth of Elk River may lead to
community services; the expansion of existing facilities and the
In Elk River, community facilities often are need to build new facilities;
the locations of large employers; Municipal buildings, libraries, schools,
The facilities should be accessible to both religious institutions, health care and a
residents and visitors; variety of other elements all form the
mosaic of what residents and businesses
These facilities often represent significant want and need in the community;
elements of community heritage and
identity; Residents and businesses place value
on the quality and variety of educational
Community facilities may influence the opportunities available in Elk River. Schools
pattern of traffic and adjacent land use; become focal points of the community.
l
WELCOME TO -
CRY HALL
Inventory and Analysis
City Facilities
City Hall
Elk River is a statutory city with a weak Mayor-Council form of government whereby
administrative, as well as legislative, authority is the ultimate responsibility of the council as a
whole. The Mayor and four council members serve on the City Council as elected officials for
4-year terms. The Mayor is elected by the electors of the city at large. The City of Elk River
is divided into four wards. One council member is elected from each of the four wards by the
electors of that ward.
Elk River City Hall is located at 13065 Orono Parkway and houses the City Administration,
Community Operations and Development, Parks and Recreation, and the City Council Chambers.
The City Administrator is directly responsible to the City Council for the operations of the
entire city including the oversight of the budget, which includes 6 departments and over 140
employees. The City Administrator provides leadership, vision, guidance, and direction to
a diverse city services operation. The Administrator also serves as an ambassador for the
community and to other governmental agencies.
112 / Chapter 1 1: Community Facilities
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Elk River has several boards and commissions make recommendations to the City Council pertaining
including the Board of Adjustments, Economic to land use policy and future use of properties.
Development Authority, Energy City Commission,
Heritage Preservation Commission, Housing & Police
Redevelopment Authority, Ice Arena Commission,
The Elk River Police Department is a full service
Library Board, Parks and Recreation Commission,
police department providing 24-hour police service
Planning Commission, and the Utilities Commission.
to over 23,000 residents within the City. The police
Key to the comprehensive and land use planning department is led by a Chief of Police and organized
process is the Planning Commission, which is an into two divisions: Patrol Division and Administrative
advisory body to the City Council. The Planning Division, each commanded by a Captain. In
Commission participates in various studies and 2013, the Police Department was comprised of 31
planning issues that are applied to guiding the sworn officers, nine non-sworn support staff and
development of the community. The Planning approximately 15 volunteer Police Reserves.
Commission conducts public hearings to receive public
The Police Reserve Unit that has served the police
comments on development proposals, subdivisions,
department and community since 1975, is a volunteer
zoning ordinance amendments, variances, re
organization that is comprised of non-sworn members.
zonings, and conditional use permits. The Planning
Key responsibilities of the Police Reserve Unit include
Commission makes recommendations to the City response to major incidents for traffic control and scene
Council based on information provided by staff,
security, community event security, search and rescue,
various agencies, and the public.
home and business security checks, general patrol, officer
Also instrumental to the land use planning process is assistance, public education, and child fingerprinting.
the Economic Development Authority (EDA) which is
The Patrol Division is comprised of 21 officers assigned
a public corporation empowered to undertake certain
types of economic development projects. The EDA to the division and is divided into twelve hour work shifts
is an arm of the City Council and handles all types covering a 24-hour day. Each patrol shift is supervised
of city economic development projects including by a sergeant. The Captain of the Patrol Division is
also responsible for maintaining the department's fleet
acquiring, developing, improving, and disposing of
of vehicles, supervising the field training unit and other
property, entering into contracts and operating and
maintaining public affairs. patrol related activities. The Police Department has
established a variety of specialized units to enhance the
The Housing and Redevelopment Authority (HRA) is a overall department effectiveness including K-9, Bike
public body that undertakes certain types of housing Team, SWAT/Crisis Negotiations Team, Honor Guard,
and redevelopment projects including planning, and Police Chaplain Corps.
acquisition, clearance, rehabilitation and construction
The Administrative Division of the Police Department
for the provision of safe housing for persons of low
is tasked with supporting and enhancing overall
and moderate income. Projects may also include
department effectiveness and is comprised of the
the improvement and restoration of stagnant and Detective Unit, Su
underdeveloped land. The HRA, like the EDA and Support Services Unit, and Community
Services Unit.
Planning Commission, is a body that will utilize the
Comprehensive Plan to aid in land use decisions and Key initiatives relating to traffic safety include the
Chapter 1 1 : Community Facilities / 113
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Sherburne County Toward Zero Deaths (TZD)/Collision Library
Reduction And Safer Highways (C.R.A.S.H.) program The Elk River Library is a branch of the Great River
dedicated to making roadways in Sherburne County Regional Library. This library system consists of
safer. Partners in this effort include Sherburne County 32 libraries over a six county area offering nearly
Sheriff's Office, Elk River Police Department, Becker 1 million items including books, audio materials,
Police Department, Big Lake Police Department, and video materials and serial subscriptions. The public
the Princeton Police Department. library is located across the street from City Hall at
13020 Orono Parkway. The library has computers
Fire with Internet access. The library also provides a
The Elk River Fire Department, formally established in large multi-purpose room available for public events/
1881, is a full-service emergency response and public meetings.
safety agency, offering a wide range of services to
provide for a healthy and safe community. Over Liquor Stores
the years, the department has transitioned from a The City of Elk River operates two municipal liquor
single-mission of fire suppression, to providing many stores as authorized by Minnesota state laws and the
additional life-safety and value added services to Elk River City Council. The Westbound Liquor Store is
the community. The fire department is focused on located at 13484 185th Street and the Northbound
four specific service areas: mitigation, preparedness, Liquor Store is located at 19348 Evans Street. Profits
response and recovery. from the City of Elk River's liquor operations go back
into community projects which would otherwise have
The City of Elk River has a Fire Chief who is directly to be paid for with increased property taxes. The
responsible for the operation of the fire department Elk River liquor stores offer a variety of regional,
and overseeing the functional divisions within, domestic, and imported beer, wines, and liquors.
including Fire/Rescue Operations, Fire & Building
Safety, and Code Enforcement.
Streets Division
The Elk River Fire Department currently responds from The Streets Division maintains 150 lane miles
two strategically located fire stations; Fire Station #1 of streets, over 200 cul-de-sacs and 20 parking
and Station #2. Station #1 is located at 415 Jackson lots. This includes snow plowing, ice control,
Avenue and houses advanced support ambulances crackfilling, sealcoating, street sweeping, gravel
which belong to a separate non-profit ambulance road maintenance, right of way maintenance and
service, and Station #2 is located at 13073 Orono signs within the road right of way. In addition,
Parkway which is home to the office of the Fire Chief the Division is responsible for the maintenance and
and is typically staffed during normal business hours. repair of the city's storm water system. The division
operates the equipment service department which
Future development patterns and traffic levels will repairs and maintains the city fleet and Elk River
influence the need for a future satellite station in the Municipal Utilities fleet. The division has its own sign
northern and/or eastern section of the City. department and designs and creates signs, logos and
114 / Chapter 1 1: Community Facilities
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banners for every department in the City. The Streets Elk River Municipal Utilities (ERMU)
Division is located at 19000 Proctor Road. Municipal Utilities
Elk River Municipal Utilities is a community-based
Parks System provider of power, water, and security systems located
The City of Elk River has an extensive park system at 13069 Orono Parkway. Elk River Municipal Utilities
that provides quality recreation opportunities for (ERMU) provides electric and water services to Elk
residents and visitors. Refer to Chapter 10: Parks, River and surrounding areas, including parts of the
Recreation, Trails, and Open Spaces for more Cities of Dayton, Big Lake, and Otsego. ERMU bills
information. the residents monthly for services provided by the
City of Elk River, which includes sewer and residential
trash removal. ERMU also sells, installs, and services
Activity Center (55+ years) security systems while providing monitoring.
The City operates an activity center located at 413
Proctor Avenue. People 55 years and older may enjoy ERMU has a variety of energy and water conservation
fitness classes, creative art classes, cards and games programs including the promotion of renewable energy
or relaxing in the Gathering Grounds coffee shop. sources such as wind power and power from the
The Activity Center also has three computers with local landfill gas. ERMU offers many programs to its
internet access which are available at no charge. The customers that saves them money and conserves
Senior Scene monthly newsletter provides up-to-date energy, including rebate programs and promoting good
information on tours, special events, programs and daily practices to make conservation a priority. It is
activities available at the Activity Center. active in the Energy City partnership with the City of
Elk River.
Golf Course
The Pinewood Golf Course in Elk River is a nine-hole County Facilities
executive course that supports the golfing community Elk River is the county seat for Sherburne County.
with a variety of programs and opportunities that The county government center campus is located
suit the occasional player as well as the avid golfer. at 13880 Business Center Drive NW along Highway
Pinewood Golf Course is located at 18150 Waco 10 in the western portion of the City. This facility
Street and is open early April through November of includes administrative offices, courts and detention
each year, weather permitting. facilities, as well as administration, GIS and Survey
staff. These facilities provide a significant source of
Ice Arena local employment. The County services also provide
The Elk River Ice Arena located at 1000 School a source of activity bringing people to Elk River to
conduct business.
Street NW provides opportunities for the community
including learn to skate programs, open skating and The Sherburne County DMV is located outside of the
hockey activities, leagues, clinics and tournaments, County campus at 600 Railroad Drive.
youth and school hockey teams including Elk River
High School, and provides a venue for a bi-annual
craft show and a walking track.
Chapter 1 1 : Community Facilities / 115
Elk River Comprehensive Plan
The County Public Works and Engineering between Jackson and Proctor. The campus contains
departments have their office out of a separate facility two elementary schools, two middle schools and the Elk
as well, which is located off of Jackson Avenue in River High School. Ivan Sand, a community alternative
downtown Elk River. high school is located in this area as well. Meadowvale
Elementary and Twin Lakes Elementary Schools are
The County fairgrounds are also located at 13372 the only ISD 728 schools in Elk River not located on
Business Center Drive between the county and city this campus. The schools are an important part of the
government campuses. community identity, provide for one of the largest local
employers in the City, and bring people into Elk River.
Schools located in the City of Elk River include:
Lincoln Elementary School (Grades K-5). Lincoln
Elementary School (Lincoln) is located at 600 School
Street providing schooling for approximately 500
students in grades kindergarten through fifth grade.
Meadowvale Elementary School (Grades K-5).
Meadowvale Elementary School (Meadowvale)
is located at 12701 Elk Lake Road and serves
.,:.
,. approximately 640 students in kindergarten through
fifth grade.
— Parker Elementary School (Grades K-5). Parker
Elementary School (Parker) is an elementary school
providing schooling for students in grades kindergarten
through fifth grade located at 500 School Street.
Twin Lakes Elementary School (Grades K-5). Twin
Lakes Elementary School (Twin Lakes) is a two-story
building that opened in fall of 2007 at 10051 191 st
Schools Avenue NW with students in kindergarten through
fifth grade. The school was designed as an energy
Schools are very important components of a efficient school and a green school and currently has
successful and viable community. Elk River is approximately 835 students. Twin Lakes was recently
fortunate to have outstanding schools. The following named a "Minnesota School of Excellence".
provides a brief description of the schools in Elk River. Salk Middle School (Grades 6-8). Salk Middle School
(Salk) is located at 11970 Highland Road and serves
over 700 students in grades 6-8. Salk Middle School
Independent Public School District #728 offers a core curriculum in areas of English, Math,
Independent School District (ISD) 728 Elk River Area Social Studies, and Science, as well as the areas of
School District, the eight largest school district in Art, Computer Applications, Industrial Technology and
Minnesota, is a progressive district proudly serving Physical Education. In addition, Salk offers Magnet
approximately 12,500 neighborhood students and specific course work (STEM Based) in English, Science
more than 50,000 total lifelong learners in all or parts and Social Studies for students who have registered
of Albertville, Dayton, Elk River, Otsego, Ramsey, for the Pre-Engineering Magnet Program in 7th and 8th
Rogers, St. Michael, Zimmerman and the townships grades and all students in 6th grade.
of Big Lake, Baldwin, Livonia, Nowthen, Orrock and VandenBerge Middle School (Grades 6-8).
Stanford. The District operates nine elementary VandenBerge Middle School (VMS) provides school for
schools, four middle schools, and four high schools. students in grades 6-8 and is located at 948 Proctor
ISD 728 has a seven-member elected School Board Avenue.
with a District Office located at 815 Highway 10. Elk River High School (Grades 9-12). Elk River High
School (ERHS) is located at 900 School Street and
ISD 728 operates a major school campus in the provides schooling for students in grades 9-12.
City of Elk River that is located on School Street
116 / Chapter 1 1: Community Facilities
Elk Elk River comprehensive Plan
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Ivan Sand Community High School (Grades 9-12). Development (GED).
The Ivan Sand Community High School (ISCHS) is
an alternative high school that opened in 1998 for Built in 1930, the Handke Center is ISD 728's oldest
students with different or unique needs. ISCHS facility, and is now in its 83rd year of continuous
is a secondary program that is designed to help operation serving the public. It served as the District's
students, who may be at-risk of not graduating, only high school from 1930 to 1961, then as a junior
earn a diploma. ISCHS provides schooling for high school, and later still as Handke Elementary
approximately 120 students in grades 9-12 and is school and the Handke Magnet (elementary school). It
located at 1232 School Street in Elk River. has housed the current array of programs since 2001.
The influences of the ISD 728 facilities, and the A portion of the main floor of the 1930 building was
importance of the public school system on community remodeled and restored to its original 1930 luster
development, create shared interest for the City during 2005-2006.
and ISD 728. A strong working relationship and
collaborative approaches should be part of addressing Private Schools
future issues. Among the issues related to school In addition to the public schools in the ISD 728 School
facilities area: District, Elk River has the following private schools:
Maintaining a quality setting for Elk River schools; My Own Montessori (Grades Pre-K — K). My
Planning for facility needs with continued growth Own Montessori School is located at 1118 4th
in east Elk River; Street NW and provides schooling for preschool
and kindergarten students in Elk River, Big
• Addressing challenges of school funding and Lake, Otsego, and the Zimmerman area. My
growth in other parts of the district; Own Montessori School is located in Union
Community and regional recreation needs; and Congregational Church one block off of Highway
Capturing the economic benefits of visitors 10 with Norfolk as the cross street.
attracted by the schools. St. Andrew's Catholic School (Grades Pre-K — 5).
St. Andrew's Catholic School is located at 428
Charter School Irving Avenue NW and offers schooling for children
Spectrum High School (Grades 6-12). Spectrum High in pre-kindergarten through fifth grade.
School is a public charter school located at 17796 Solid Rock Christian Academy (Grades K — 12).
Industrial Circle NW in the southeastern portion of Elk Solid Rock Christian Academy was founded in
River. The charter school in celebrating its eight year as a 1994 and is located at 11800 196th Avenue NW,
member of Elk River during the 2013-2014 school year. west of Highway 169.
Monarch Montessori (Age 33 months — Grade 6).
Monarch Montessori School provides a unique
Handke Center alternative to traditional schools, both public and
The historic Handke Center located at 1 170 Main private within the Elk River area. The School is
Street is home to the following ISD 728 programs located at 19277 Vernon Street (by Meadowvale
which enhance the education programs within the Elementary School) and serves the Elk River,
City: Community Education, Early Childhood Family Otsego, Rogers, Zimmerman, Big Lake, and
Education (ECFE), Early Childhood Special Education Monticello communities.
(ECSE), Early Childhood Screening and health services,
Adult Basic Educaiton (ABE), and General Education
Chapter 1 1 : Community Facilities / 117
Elk River Comprehensive Plan
Minnesota School of Business- Elk River Cemeteries
College Campus
Minnesota School of Business Elk River campus is Four cemeteries are located in Elk River including:
located off of Highway 169 at 11500 193rd Avenue. Meadowvale Cemetery, organized in 1895, located
The Elk River Campus opened its doors in 2009 off of Meadowvale Road NW approximately two
and offers career focused college degree programs miles north of County Road 33 (a portion of the
in business, accounting, technology, veterinary cemetery is located within Livonia Township;
technology, health and legal science fields. While Orono Cemetery, graves dating back to 1855,
relatively new to the City, student enrollment and located on the south side of Lake Orono in the
faculty have grown since its inception. Internship western portion of the City;
opportunities provide an excellent way to engage the St. Andrew's Catholic Cemetery, organized in 1891
students in City government and provide assistance to with records dating to the 1860's, located south of
local businesses throughout the City. 193rd Avenue and west of Highway 169; and
Vernon Cemetery, organized in 1915 with land
deeded in 1878 and some burials first seen in
1855, located two blocks west of Evans Street on
Railroad Drive in Elk River.
� x
The cemeteries have sufficient available space to
meet the anticipated demand for burials in cemeteries,
at least through the year 2040.
Religious Institutions !oo
a�
These institutions are an important part of the
social fabric of the City and have a large impact
on the community. With a variety of faith based
options for the City's residents, religious institutions Community Events
add to the quality of life in a town the size of Elk The City of Elk River has many
River. They provide opportunities for neighbors to celebrations and community events
connect, socialize, and they also provide employment
opportunities. throughout the year. These events
ra 4th help define Elk River's unique sense
of place and contribute to the City's
OF JULY high quality of life. Some key
ELK events include, but are not limited
RIVER to ArtSoup Community Art Festival,
4th of July Elk River, Taste of Elk
River, Shiver Elk River, and the
Riverfront Concert Series.
118 / Chapter 1 1: Community Facilities
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Community Facilities and Services Plan
The following expands on the implementation strategies outlined later in this chapter by further describing key
concepts for maintaining and enhancing community facilities and services in Elk River.
City Facilities and Services and the International Council on Local Environmental
Issues (ICLEI)) to promote an awareness and
City Hall understanding of energy conservation efforts and
City Hall will continue to provide cost effective services to seek grants to implement energy conservation
that meet the needs of the residents, business owners, measures.
and property owners alike. The City will strive to The City will strive to update its ordinances and
make City Hall a showcase facility that simultaneously policies to address energy conservation issues that
considers social, economic and environmental factors. affect community facilities as well as other types of
Examples of this include continuing to make cost- development.
effective improvements to City Hall that will conserve
energy. The City will explore ways to enhance the
City Hall site by implementing low impact design storm Other Facilities and Services
water management techniques, low maintenance native
landscaping, and similar techniques that are cost- ISD 728
effective, visually attractive, and environmentally sound. It is critical for the City of Elk River to continue to
coordinate with the Independent School District (ISD)
Streets Division 728 Elk River Area School District on future land use
The Streets Division and associated facilities will needs or issues moving forward.
continue to identify opportunities to provide cost-
effective, safe, and environmentally sound City Shared Community Facilities and Services
vehicles and equipment. The Streets Division will The City of Elk River and neighboring and overlapping
also continue to explore opportunities for alternative agencies and jurisdictions should continue to
design, construction, and maintenance techniques for coordinate efforts to provide cost-effective services.
City streets and similar facilities. Specifically those potential shared facilities that may
be difficult for an individual jurisdiction to provide on
Police and Fire Department its own, but may be feasible if shared with others.
The City will continue to monitor the current and
anticipated staffing, equipment, and facility needs Telecommunications
of the Police and Fire Departments and will explore The City recognizes that high-speed information
opportunities to address those needs in an efficient services are a critical component of Elk River's
and cost effective manner. The City will also continue infrastructure and a critical component of economic
to work with neighboring and overlapping jurisdictions development and quality of life. As such, the
to explore the most appropriate ways to provide City will listen to the hopes and concerns of
police, fire and emergency medical services to Elk residents, business owners, and industries relating
River and the region. to telecommunications. As the City continues
to grow and develop and implements plans to
Energy Consumption upgrade and extend municipal sewer and water
The City will explore ways to reduce its energy lines, it will also consider opportunities to work
consumption. For example, the City will strive to replace with telecommunication providers and private utility
inefficient lighting in City facilities, replace inefficient companies to enhance telecommunication throughout
City vehicles and equipment with more efficient vehicles the City where feasible.
and equipment, and to use green building techniques in
new and renovated City buildings.
The City will explore opportunities to partner with
other public or private resources (such as the Center
for Energy and Environment (CEE), Renew Minnesota!,
Chapter 1 1 : Community Facilities / 119
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Elk Elk River comprehensive Plan
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Implementation
The following are statements that reflect strategies that are geared toward community facilities.
Continue to evaluate and pursue the costs and Continue to conduct periodic energy audits of all
benefits of partnering with other government entities pertinent City facilities. Identify and implement
to provide cost effective community services in Elk strategies to reduce carbon emissions, increase
River. When appropriate, explore contracting with energy efficiency, and provide the City with
other government entities for services. monetary savings.
Continue to evaluate and pursue the costs and Consider developing and implementing strategies
benefits of sharing Elk River's services with other to reduce the use of fossil fuel in City vehicles and
communities. equipment. Consider the use of hybrid vehicles,
Continue to coordinate and/or partner with alternative fuel-efficient conventional vehicles
Independent School District 728 on pertinent and other types of vehicles that reduce fossil fuel
services such as community education and use. Also, develop and implement strategies that
recreation programs. reduce the number of vehicle miles traveled for City
business using fossil fuel vehicles.
Consider developing and implementing a plan to
ensure that new construction and renovations Consider developing and implementing strategies to
pertaining to City facilities, follow green technology use "green" cleaning products in all City facilities.
standards, where feasible. Consider developing and implementing strategies to
Where appropriate, promote native landscaping that help the Streets Division continue to implement their
reduces the use of chemical fertilizers, herbicides, tasks in a sustainable and cost-effective manner.
pesticides, irrigation and fossil fuel use. Continue to inventory and analyze all City equipment
Consider developing and implementing a plan to make sure that it works safely and efficiently.
to provide community gardens on City property Continue to budget and plan for equipment
or partner with Elk River institutions (ISD 728, replacement and repair as needed. Prepare a cost-
Sherburne County and religious institutions) to benefit report to support decisions.
provide community garden space where feasible.
• Continue to partner with or support others in their
Lead by example by using rain gardens, rain barrels, efforts to provide events and celebrations that
and other techniques that others can use on their benefit Elk River residents and business owners.
properties. Encourage City Staff and Elected Officials to promote
Consider developing and implementing an the City through speaking engagements, news
environmental preference purchasing program. articles, and presentations at a variety of events, as
Consider partnering with other government entities established by City policy.
to maximize savings. Where appropriate and Actively solicit citizen participation in City affairs,
feasible, engage institutions, businesses, and including committees and events.
residents.
Work with the School District to promote
opportunities for youth to be involved in City
activities.
Chapter 1 1 : Community Facilities / 121
Elk River c..Piehensive Pi.
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3 ■
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6
Introduction
e. Communities with strong economies have the financial resources
r
necessary to support the services that their residents need and
desire. However, sustainable communities recognize that community
development is not simply about increasing the financial resources
of the community; it is not simply about promoting businesses and
industries that will create more products and deliver more services
without regard to the natural and social environments; nor is it simply
about increasing the financial wealth of individuals. Rather, community
development in a sustainable community is about bringing together
social, natural, and economic resources to sustain the "whole"
community.
Chapter 12: Community Development / 123
Elk River Comprehensive Plan
The community development section is, to some degree, the sum of all the other parts in the
Comprehensive Plan. The process of discovery that is required to complete the Comprehensive Plan
provides a basis for current and future City leaders to decide things like what, if anything, should
the City of Elk River do to help facilitate business and/or residential growth. In addition, this section
aims to outline planning activities that should be undertaken in achieving the current economic
development goals of the City of Elk River. One of the current goals of the City is to "foster a pro-
business atmosphere that provides incentives and other opportunities for new and existing business
growth".
Three aspects of Elk River's future that require particular attention and action by the City include:
Expanding the tax base
Attracting jobs
Encouraging redevelopment
These actions remain the three key aspects for the 2013 Comprehensive Plan Advisory Committees.
Expanding the Tax Base
Property taxes remain the largest source of revenue for the City of Elk River. In fact, roughly
three-fourths of the City's budget is derived from property taxes. While all forms of development
contribute tax base to the community, it can be risky to place too much weight on tax base growth
as a strategy. A lack of local control over the critical elements of the tax system is cited as the
main reason for the risk.
Chart12-1: Tax Base
$30,000,000
$25,000,000
$20,000,000
$15,000,000 2010
2011
■2012
$10,000,000
■2013*
$5,000,000
$0
Gross Net Tax Less Captured Tax Net Tax Capacity Tax Levy
Capacity Increment for Levy
($5,000,000)
Source: City of Elk River, WSB & Associates, Inc.
124 / Chapter 12: Community Development
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Chart 12-1: Tax Base, on the pevious page, shows a decline in gross net tax
capacity for the City of Elk River since 2010. It also shows that even though
the City was able to reduce the tax levy amount in recent years, the local tax
rate increased from 44.56% in 2010 to 49.56% in 2013. According to the
2013 Budget, the decline in gross net tax capacity is mainly due to a decline
in residential taxable market values, which dropped 13% in 2012. The taxable
market values for commercial properties dropped .21% and industrial properties
increased .38%. Seeking commercial and industrial development as a means
of building tax base is commonly thought of as ideal since, historically, a dollar
of estimated market value of commercial-industrial property carried a higher tax
capacity value than residential property. Legislative changes to the tax system
resulted in declining tax capacity values for commercial-industrial properties
from 1997 to 2002. However, given the relative stability of the taxable market
values for commercial-industrial properties compared to residential properties in
recent years, it is clear that focusing attention on tax base growth as a strategy
for commercial-industrial properties is a legitimate community development
strategy.
The disparity in declines in taxable market values between residential and
commercial-industrial properties results in businesses taking on a larger share
of the local tax levy. Local tax competitiveness is an issue that falls within the
context of business retention and expansion, commonly known as BR&E. City
officials should continue efforts to perform functions within the BR&E framework
to ensure local businesses have an opportunity to have an open dialogue with
the City on an ongoing basis. This would aid in achieving the City's Community
Development goal, which aims to, "Enhance and expand community involvement
and public participation through a variety of innovative outlets".
Jobs
Planning for commercial-industrial development continues to be an important
issue for the City. A motivation for commercial-industrial development is the
creation of jobs.
Retaining and attracting livable wage jobs has been an ongoing objective
for the City of Elk River. In 2013, commercial and industrial properties
made up 23% of the tax base in Elk River (21% and 2% respectively).
According to the 2010 Census, 68% of Elk River workers had jobs
outside of the City. Since 1990, roughly 40% of Elk River workers travel
35 or more minutes to work and nearly 80% of workers drive alone. By
comparison, only 17.1 % of Minnesota workers have an average commute
time of 35 minutes or more. Refer to chart 12-2: Community-2010 for more
information.
Long commute times and employment outside of the City creates barriers to
building local connections, can contribute to retail leakage, and reduces the
amount of time available for recreation. In addition, there is a growing body of
evidence that the next generation of workers will want to spend as little time
commuting as possible. Retaining and attracting livable wage jobs will provide
current and future Elk River residents the option of working where they live.
Chapter 12: Community Development / 125
Elk River Comprehensive Plan
The major employers in Elk River have traditionally been various institutions in the service-providing sector
including Elk River Independent School District 728, Sherburne County, City Hall, and various religious
institutions. Over time, the employment base began to diversify and add new major employers including Wal-
Mart and other retail establishments, Metal Craft Machine & Engineering, Cretex and other retail, service, and
light industrial institutions. The top 20 employers within the City include:
Chart 12-2:Commuting-2010
90.0%
80.0%
70.0% -
60.0% Percent of Workers
50.0% Traveling 35 or More
Minutes to Work
40.0% ■Drove Alone-Car,Truck
30.0% or Van
20.0%
10.0%
0.0%
1990 2000 2010
Source: US Census
Top 20 Employers within Elk River
Largest Employers Product/Service Full-Time Part-Time Total
Employees Employees
Independent School District 728 Education 892 706 1598
Sherburne County Government 560 38 598
Wal-Mart Retail Store nla nla 380
Guardian Angels of Elk River, Inc. NursinglHousing 79 238 317
Great River Energy Electric Utility 236 0 236
Tescom Corporation Pressure Control Devices 187 0 187
City of Elk River Government 114 45 159
Menards Retail Store nla nla 150
Cornerstone Auto Resource Automobile Sales 105 42 147
Coborn's Grocery Store 27 95 122
Sportech,Inc. Plastics Thermoforming 103 8 111
Cub Foods Grovery Store 44 65 109
Metal Craft Machine&Engineering Precision Maching 100 5 105
Cretex Companies,Inc. Precast Concrete Products 100 0 100
Crystal Distribution, Inc. Custon Curb Adaptors 100 nla 100
The Home Depot Retail Store nla nla 100
The Bank of Elk River Financial Institution 86 13 99
E&0 Tool and Plastics,Inc. Injection Molding j 98 j 0 j 98
Faribault Foods,Inc. Pouch Packaging 79 nla 79
Source: City of Elk River
126 / Chapter 12: Community Development
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Planning Efforts time, the lack of investment leads to a deterioration
of property. These conditions of blight often spread to
Economic Development Strategic Plan adjacent properties.
Redevelopment will become an increasingly important
The Elk River 2013-16 Economic Development Strategic community development issue for Elk River. Several
Plan seeks to "Modify [the] Industrial Development goal to factors define the need for city action:
Business Development and include two sets of strategies:
1) Industrial Development Strategies, and 2) Commercial Redevelopment becomes a public issue because
Strategies." Under the Business Development goal is market forces are not likely to solve the problem.
the following objective: "Attract new businesses and While Elk River has the ability to expand,
development demand can bypass redevelopment
support existing businesses to increase the city's industrial parcels and seek out vacant land. There is little or
tax base, commercial base and employment base." no incentive to correct the problems on blighted
The Economic Development Strategic Plan provides a parcels. Vacant land avoids many of the barriers
strategic approach for attracting industrial and commercial of redevelopment sites.
businesses.
• Redevelopment property is often more expensive.
Acquisition includes both land and buildings.
Strategic Industrial Marketing Plan Redevelopment often requires the assembly of
smaller parcels into a larger site. Multiple property
There is a realization among City officials that reaching the owners with differing interests compound the
industrial development goals will require more effort than complexity of land acquisition.
simply designating property in a land use plan; especially Redevelopment sites have more site preparation
as it relates to attracting new business to Elk River. costs. Buildings must be demolished and the site
To this end, the City has created a Strategic Industrial cleared before new construction can occur.
Marketing Plan. The vision of this plan is for Elk River "to
• Redevelopment may face the need and cost of
be the light industrial hub for small to medium-size firms environmental remediation. Old buildings may have
in the northwest metro region." The Strategic Industrial asbestos or other hazardous materials that require
Marketing Plan provides the framework for identifying special treatment. Certain commercial and industrial
opportunities and attracting new businesses to Elk River. may have allowed pollutants to enter the soil.
Energy City 2024 Action Plan All of these factors combine to create significant
economic barriers to redevelopment. Removal of
The Energy City Commission is developing an action these barriers is a primary focus of city actions
plan to focus its efforts on creating tangible targets and related to redevelopment.
benefits to the City, its residents, and business partners.
Mississippi Connections Redevelopment
171st Avenue Focused Area Study (FAST) Framework
The 171 st Avenue FAST has an employment focus. It The Mississippi Connections Redevelopment
seeks to leverage key assets that are embedded in the Framework establishes a long-range vision for the
community to reinforce Elk River as a regional hub. The 400-acre core of Elk River. The objective of the
Plan also seeks to create nearly 6.5 million square feet of plan is to, "provide guidance to property owners,stakeholders, and community leadership to
retail, office and industrial space at the maturity of the position the area in such a way that strengthens
plan, which is a 25 to 30 year planning horizon. the area to survive the impacts of time and
change; methods to reestablish the downtown
Redevelopment area as a destination; a desirable address to do
business, live, and enjoy the diversity of uses in
The roots of redevelopment are intrinsically tied to local a character rich downtown amid the hustle and
economic factors. Limitations on income means a lack of bustle of a growing community."
disposable income needed to reinvest in property. Over
Chapter 12: Community Development / 127
Elk River Comprehensive Plan
Mississippi Connections Area
The area identified as the Mississippi Connections
Area is an essential part of Elk River's heritage and
identity. The Mississippi Connections land use seeks
to preserve and enhance the commercial districts and
residential neighborhoods in this area. Continued
designation of a land use is only one step in the
effort to preserve and enhance the downtown area.
Continued actions must be taken to achieve the
objectives of the Mississippi Connections plan. k
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M11
Continue to Build Connections
A key to the revitalization and sustainability of the
Mississippi Connection area is creating connections
�T
within the area to other parts of the community.
Some potential connections include:
Continued streetscape improvements along Main,
Proctor and Jackson to maintain the sense of
identify andappearance of the downtown area.
Build off of and strengthen a well-defined system
of sidewalks and trails to encourage pedestrian
and other non-vehicular movement within the
area. North-south connections and safe access
across Highway 10 are critical in this area. Further
connections should link downtown to school
campuses, Lion's Park, the River, Handke School
and the Library, which are outside the area.
Continued connections through parks, other
public open spaces, trails, and orientation of
private development to create visual and physical
connections between the Mississippi Connections
area and the Mississippi River. ,
Continued Maintenance of Public Facilities _
Public facilities are key elements of the Mississippi -
Connections Area. Schools, Lion's Park Center, —,-
other parks and the Library shape the identity of the
Mississippi Connections Area. They also attract
people into the area. Continued improvements
and maintenance of these public facilities should
be considered and objectives of the Mississippi
Connections area and public actions should focus on
retaining these public uses within the area.
I 1
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128 / Chapter 12: Community Development
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Tools for City Actions Tax Abatement
The Community Development section of the Tax abatement acts like a simpler and less powerful
Comprehensive Plan presents items that serve version of tax increment financing. With TIF, the city
as a focus for city actions. These actions seek controls the entire property tax revenue from new
to achieve the vision for the future of Elk River
development. Under the abatement statute (Minnesota
in areas where market forces alone will not be
sufficient. State Law provides a broad array of Statutes, Sections 469.1812 through 469.1815), the
powers and tools that may assist the city in these City, County and School District have independent
initiatives. The following section provides a brief authority to grant tax abatement.
discussion of the tools currently available to the
city. This information is designed as a point of Special Assessments
reference in continued community development
planning. Public improvements are often financed using the
power to levy special assessments (Minnesota
Finance Tools Statutes Chapter 429). A special assessment is
a means for benefiting properties to pay for all or
Community development actions require a framework part of the costs associated with improvements,
for financial decision-making. The investment of and to spread the impact over a period of years.
public dollars to achieve community development This tool can be applied to both the construction of
objectives should be guided by several key principles: new improvements and the rehabilitation of existing
Financial resources are limited. The City improvements.
has limited funding to apply to community
development initiatives, so the use of resources Utility Revenues
must be targeted to achieve the greatest effect on
community needs. The City operates three municipal utilities: water,
Financial decisions require a long-term perspective. sanitary sewer and storm water. The revenues from
The current use of financial resources may reduce the operation of these utilities are available to pay
monies available in the future. In evaluating for capital improvements in support of community
short-term opportunities, it is important to question development initiatives. State Law (Minnesota
the long-term impact on community development. Statutes, Section 444.075) gives the authority to
Public funds should lead to private investment. pledge these revenues to general obligation bonds for
While this section focuses on public finance utility system improvements.
actions, the Comprehensive Plan cannot become
reality without private investment. The use of Capita/Improvement Bonds
public funds should be targeted to actions that
encourage private investment in Elk River. Cities may issue capital improvement bonds
(Minnesota Statute, Section 475.521) for specific
Tax Increment Financing purposes.
Tax increment financing (TIF) is the primary
development finance tool available to Minnesota Micro%ans
cities (Minnesota Statutes, Sections 469.174
through 469.179). TIF is simple in concept, but The Microloan program provides low interest, long-
complex in its application. Through tax increment term (i.e. greater than one year) loans as incentives to
financing, the property taxes created by new encourage the following:
development (or redevelopment) are captured and
used to finance activities needed to encourage Industrial development that supports the tax base
the development. The challenge in using TIF lies and brings quality jobs to the city
with the complex and ever changing statutory Rehabilitation of existing buildings in the Central
limitations. The City has utilized TIF sparingly in Business District
the past, and it is expected that it will continue to Energy Efficiency improvements to businesses and
do so in the future. manufacturers
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Implementation
The following are broad implementation strategies Encourage the development of new, value-added
reflecting the City's vision, specifically as it relates to industries and businesses that can benefit from the
community development. area's amenities and existing industries.
Set retention of existing businesses and industries As appropriate, coordinate with the Elk River
as a priority of the City's economic development Area Chamber of Commerce, neighboring and
plan. overlapping jurisdictions, and others to promote Elk
Continue implementation of periodic BR&E River and/or the area as a special destination area
meetings on an individual basis with businesses with unique shops and restaurants and diverse
and industries to listen to concerns and discuss recreation activities and community events.
opportunities for success. Also identify any Strive to identify under-utilized or under-served
perceived or real barriers or obstacles (such as local and regional markets and give priority to local
overly restrictive ordinances) that the City could business development to service these markets.
potentially remove or minimize to help businesses Coordinate with businesses and industries to
and industries prosper, while still protecting the explore opportunities for the City to stand out as
health, safety, and welfare of the public. a leader in sustainable business and community
Coordinate with Sherburne County, the Elk River development.
Area Chamber of Commerce, Minnesota School of Analyze the long-term viability of existing and
Business - Elk River Campus, the School District, proposed neighborhood convenience nodes in
GreaterMSP, and others in their efforts to promote the City. Where appropriate, work with property
training opportunities that can help businesses owners and neighbors to ensure continued success
and industries prosper. If appropriate, co-sponsor of neighborhood convenience uses in a manner
and/or offer City facilities for employee training that compliments the surrounding neighborhoods.
programs.
Coordinate with energy providers and others to Identify and implement strategies to enhance
the infrastructure in a way that can help support
help businesses and industries conserve energy residents telecommute or conduct business out of
resources and reduce operating costs.
their home.
Continue to promote Elk River's high quality of life Continue to promote and encourage the expansion
as a means to help attract new businesses and of jobs and buisness growth within the city.
industries.
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Introduction
Community image is a thread running through the entire Comprehensive
alliance Plan. Every chapter of the Plan deals, in some manner, with the
MAIN STREET GALLERY face Elk River presents and the vision it holds for the future. The
Comprehensive Plan seeks to establish and maintain a positive
community image by:
Creating an overall development pattern that is well designed and
sustainable;
Maintaining edges and buffers that define and protect adjacent land
uses;
Promoting a development pattern that properly blends the built and
the natural environment;
Sustaining livable neighborhoods and promoting pride in property
and community;
Creating and maintaining excellent systems of parks, trails, and
open spaces throughout the community; and
Providing community facilities that meet the needs of Elk River
residents of today and tomorrow.
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Elk River Comprehensive Plan
In addition to these key objectives of the
Comprehensive Plan, certain aspects of community
image merit addition attention. This Chapter of the Plan
examines several specific aspects of community image
for Elk River.
1 The focus of development and redevelopment in
„- - Elk River should focus on creating a community of
connections, carefully designed places, sidewalk and
" } trail connections, and green spaces and open spaces
that are walkable and create opportunities to enhance
--- the health and vitality of the community.
Image Issues and Opportunities
Various elements combine to form community image. In 2012, the City of Elk River underwent
a community-wide branding process that resulted in the City's "Community Brand Compass &
Brand Navigator". "Powered By Nature" brings the community brand to life in a powerful and
compelling way.
In using the Comprehensive Plan as a tool to enhance image beyond the efforts of the branding
plan, it is important to consider the issues that shape Elk River's image. The following questions
help to frame planning related to image:
What factors establish Elk River's identity?
Should and/or how can the image of Elk River be improved in the minds of residents and non-
residents?
How can the sense of "place" be enhanced?
Should neighborhoods be more clearly defined and identified?
How can the entrances (or gateways) to Elk River be more clearly identified?
Do the City, the business community, and School District market themselves effectively to
existing and prospective residents (especially to families)?
The answers to these questions will help to guide public actions related to community image.
Some of these issues are explored in greater detail in the sections to follow.
Public Investment
Investments in public buildings and infrastructure create the opportunity to define and enhance
community image. The public investment in streets and the adjacent right-of-way can have
significant impacts on community image. Elements to enhance the streetscape are key to
creating a community image that people can relate to and enjoy. Planning improvements to the
local street system create the opportunity to explore the use of these improvements to enhance
image. This opportunity is critical, especially in areas such as the downtown. Improvements over
the past several years within the downtown area have made strives to enhance the downtown
area in terms of place-making and streetscaping, but continued support and dedication to this
concept will be critical in the years to come.
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Public buildings are an important component of community character as well. The
reuse and enhancement of historic structures shape the face of the community and
maintain that "small-town-feel" that residents and business owners alike have grown
to love and expect in years to come. The reuse of existing properties with exceptional
character provide a positive reflection of community heritage and values. The
continued public use of the Handke School is a prime example of this approach and
other similar opportunities should be encouraged in the future.
The park system offers another illustration of using public investment to enhance
image. Parks create green space and natural settings in a built environment. Parks
provide places for community to gather and play. They also provide tangible proof of
Elk River's commitment to quality of life. The Rivers Edge Commons is a great example
of this type of amenity that adds to the image of the community.
Open Space/Greenways
The continued preservation and use of open space and natural features helps to
maintain the "rural" or "small town" character of the community that has continuously
been expressed as a top priority. The Parks, Trails, and Open Space chapter of the
Plan discusses the creation of greenway corridors. These corridors help to create a
rplace that blends the built and natural environment. Other open space initiatives seek to
I E establish a stronger connection between the community and the River.
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!� Signage
' Both private and public signage plays a huge role in community image. Business
signs are an important extension of commercial development as these signs announce
the presence and location of their business. Without public guidance and key design
standards, business signs can diminish the overall image of commercial or industrial
districts and corridors. Local ordinances should seek a balance between private and
public objectives. At a minimum, the size, quantity and appearance of signs should not
detract from a positive community image. A better objective is to find ways of using
=- these private investments to enhance the visual appeal of the area. Business interest
will center on cost and effective communication.
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Elk River Comprehensive Plan
Public signage is an important element of image
as well. Directional and informational signage can
reflect community image and heritage. These public
improvements should be part of a broader plan for
corridor enhancements. If corridors attempt to draw
people into Elk River, signage must support this
objective. Signage suggests that there are points
,.- of interest not immediately visible from the edge or
gateway. Effective signage and consistent signage
helps visitors navigate around the community.
Design Guidelines
With the completion of the Mississippi Connections
Plan, further analysis of design guidelines for the
downtown area is key to successful implementation of
the Plan. Design guidelines help to preserve historic
character and to promote a cohesive appearance.
Design guidelines should also be considered as part
of area development and redevelopment efforts
throughout the community.
Downtown
One key facet of the Downtown land use and the
implementation of the Mississippi Connections Plan is
to build on the historical character of Elk River. The
strategies for using the Downtown area to enhance
the image of Elk River include:
Focus on other redevelopment opportunities in this
r ® y area;
Continued enhancement of community orientation
„yY and public access to the River;
Use community facilities to make this area a focal
point of community life;
Use consistent streetscape and signage to create a
common identity;
Maintain the area as a strong and distinct
residential neighborhood; and
Maintain the historic character of downtown.
Maintaining a balance between existing structures and
•r ' redevelopment will be critical to ensure the character
of the downtown is sustained.
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The following are statements that reflect strategies that are geared toward community image.
Work with neighboring and overlapping Where appropriate, support and assist efforts
jurisdictions to guide appropriate land uses near the to improve the appearance of commercial and
boundaries of Elk River (both within the City and industrial developments along major corridors
within the surrounding communities). within the City including along Hwy 169, Hwy
Where feasible, coordinate with neighboring 10, within the downtown, and at key entry points
communities and Sherburne County to ensure and industrial parks though the use of building
compatibility between the various Comprehensive rehabilitation, screening and enhanced landscaping
Plans, Subdivision Regulations, and Zoning and signage.
Ordinances. Continue to work with properties that detract
Explore opportunities to coordinate with agencies from the established community image goals by
to implement compatible standards relating to requiring compliance with all city codes through
protection of natural and cultural resources. effective enforcement strategies.
Promote the protection and enhancement of Continue to promote private reinvestment in Elk
important historical and natural resources as a River. One way to accomplish this task is to
means to maintain the integrity, heritage and local provide assistance and information with regard
character of the community. to available programs that may assist property
and business owners in building renovations,
Continue implementation of the Mississippi expansion, enhancement and beautification.
Connections Plan and streetscaping enhancements
throughout the entire city, in the downtown area in Consider developing a plan or implementation tool
particular. that offers incentives for infill development and
removal of substandard buildings or consolidation
Continue the implementation of the Community of land where feasible.
Brand Compass and Brand Navigator to establish
and enhance the cohesive image for the entire Encourage volunteerism and participation in
community. community activities and acceptance of City
leadership positions. Ideally this will lead to
Continue to support adaptive reuse of existing increased and improved communication and
buildings where appropriate. interaction between City and residents, business and
Promote the development and implementation property owners, and other community members.
of a Comprehensive Plan that effectively and
efficiently plans for land use, community facilities,
transportation, housing, economic development,
recreation and natural spaces and technological
advancement for Elk River.
Continue to support organizations that promote
Elk River including the Elk River Area Chamber of
Commerce.
Create and maintain attractive gateways and entry
points in the City. A key component of this will N+'
be to develop a plan to keep the City's gateways I
appealing by maintaining and enhancing lighting,
signage, public art, landscaping and other features
at the City entrances.
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