8.2. SR 05-19-2014 �i
EOty lk Request for Action
River
To Item Number
Mayor and City Council 8.2
Agenda Section Meeting Date Prepared by
General Business May 19, 2014 Jeremy Barnhart,Deputy Director, CODD
Item Description Reviewed by
City of Elk River Land Use Amendment- Cal Portner, City Administrator
Comprehensive Plan Reviewed by
Action Requested
Approve,by motion, the Comprehensive Plan update as drafted.
Background/Discussion
Case Number LU 14-01
On May 5, 2014, the Council held the final public hearing and directed staff to make a number of changes
based on comments received. Those comments and responses are summarized in the attached
spreadsheet.
The final draft reflects the direction of the Council.
Upon adoption, staff will prepare a list of necessary zoning ordinance amendments to facilitate
implementation of the Comprehsinsive Plan.
Financial Impact
None
Attachments
• Final draft of Comprehensive Plan, dated May 19, 2014
• Summary of comments received
p 0 W I R I I a
ATURE
Elk River
Comprehensive Plan
701 Xenia Avenue South, Suite 300
Minneapolis, MN 55416
Tel: (763) 541-4800 · Fax: (763) 541-1700
wsbeng.com
Adopted: ____________________, 2014
DRAFT
Adopted: ____________________, 2014
Elk River
Comprehensive Plan
701 Xenia Avenue South, Suite 300
Minneapolis, MN 55416
Tel: (763) 541-4800 · Fax: (763) 541-1700
wsbeng.com
Contents
Chapter 1: Introduction ..................................1
Chapter 2: A Vision for Elk River .....................5
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
Chapter 11: Community Facilities ....................111
Chapter 12: Community Development ..............123
Chapter 13: Community Image ......................131
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
Committee (CAC)
Paul Motin, City Council
Barbara Burandt, City Council
Mark Konietzko, Planning
Commission
Gunther Sagan, Parks and
Recreation Commission
Larry Toth, Housing and
Redevelopment Authority
Bryan Provo, Economic
Development Authority
Joshua Fox, Historic Preservation
John Setala, Energy
City Commission
Debbi Ryberg, Elk River Area
Chamber of Commerce
Bruce Anderson,
Sherburne County
Project Advisory
Committee (PAC)
Calvin Portner, City Administrator
Jeremy Barnhart, Community
Operations Development
Deputy Director
Chris Leeseberg, Park
Planner/Planner
Zack Carlton, Planner I
Justin Femrite, City Engineer
Michael Hecker, Parks and
Recreation Director
Brian Beeman, Economic
Development Director
Suzanne Fischer,
Community Operations and
Development Director
Gary Leirmoe, Wastewater
Treatment Chief Operator
City Council
John J. Dietz, Mayor
Stewart Wilson, Ward 1
Matt Westgaard, Ward 2
Barbara Burandt, Ward 3
Paul Motin, Ward 4
Planning
Commission
Dana Anderson, Chair
Mark Konietzko
Jeremy Johnson
Eric Johnson
Mike Keefe
Mike Keller
Chad Westberg
Chapter 1: Introduction / 1
Elk River Comprehensive Plan
Ch
a
p
t
e
r
1
:
I
n
t
r
o
d
u
c
t
i
o
n
Purpose of the Plan
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
community will construct its future. More specifi cally, 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.
2 / Chapter 1: Introduction
Elk River Comprehensive Plan
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.
Chapter 1: Introduction / 3
Elk River Comprehensive Plan
Chapter 1: Introduction. This chapter describes the
purpose of the Plan, how it is intended to be used, how
it was developed and how it is organized.
Chapter 2: Vision. The chapter on vision provides
a snapshot of what the members of the community
would like the future of Elk River to look and feel like.
The Vision Statement provides the basic framework for
planning and decision-making.
Chapter 3: Implementation. The Comprehensive
Plan is the most important tool for guiding the
development of Elk River, but the plans and
implementation strategies contained within each
chapter can only help achieve the community’s vision
for the future if the Plan is used. The purpose of this
section is to provide guidance on using the Plan and
creates a set of guidelines to do so.
Chapter 4: Community Context. This chapter provides
general background on the community and its people.
Chapter 5: Land Use. In order to realize the Vision
for the future of Elk River, this chapter sets the
foundation and guides the use of land. The Land
Use chapter considers broad community patterns
and questions such as how much growth should be
anticipated and accommodated and where should the
growth occur. It also contemplates how land uses
relate to each other and to the natural environment.
Chapter 6: Transportation. This chapter provides
an inventory and analysis of the regional and local
transportation system and it provides a plan to
address transportation issue and opportunities.
Chapter 7: Housing. While many aspects of housing
development will be controlled by market forces,
there are aspects of the Housing chapter that focus
on the type of housing envisioned for the City of Elk
River. These aspects include, but are not limited
to, affordability, housing patterns, and housing type
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 8: Utilities. Community growth and
development involves a variety of municipal Utilities.
This chapter focuses on inventorying, maintaining,
sustaining, and enhancing the municipal utility system
within the City.
Chapter 9: Parks. Parks provide places for the
community to gather and play and also provide a
means for protecting natural features, open spaces,
and other aspects of Elk River’s natural heritage.
A system of trails connects the community and
allows for safe movement outside of vehicle traffi c.
This chapter provides a summary of the existing
park system and outlines strategies for future
improvements. The City is in the process of updating
a standalone Parks, Trails and Open Space Plan which
should be used for more detailed information.
Chapter 10: Community Facilities. This chapter
describes existing and proposed community facilities
and services in the city. This chapter also summarizes
the key issues and opportunities relating to
intergovernmental cooperation and it provides a plan
for joint efforts in the future.
Chapter 11: Environmental Resources. Elk River is
blessed with a variety of natural and environmental
resources. This chapter examines their impact
and importance to the future development of the
community.
Chapter 12: Community Development. This chapter
of the Plan discusses roles and initiatives for the City
to take in attempting to meet specifi c development and
redevelopment needs of the community.
Chapter 13: Community Image. This chapter
explores approaches to create a consistent image for
Elk River as it continues to grow, development and
redevelop, including general appearance guidelines
for the downtown area, major roadway corridors and
community gateways.
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:
4 / Chapter 1: Introduction
Elk River Comprehensive Plan
·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 background
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
Advisory Committee (CAC) was comprised
of a broad-based citizen group that consisted
of members from the City Council, Planning
Commission, Parks and Recreation Commission,
Heritage Preservation Commission, Energy City
Commission, Economic Development Authority
(EDA), Housing and Redevelopment Authority
(HRA), Elk River Area Chamber of Commerce,
Downtown Rivers Edge Business Association,
and Sherburne County. The CAC met on a
monthly basis throughout the planning process to
provide direction and feedback on the visioning
process, draft chapter language and assist in the
development of the Comprehensive Plan.
·Community Open House: The City held two (2)
community open houses to seek public input on
the draft Comprehensive Plan. The fi rst open
house was to explain the comprehensive planning
process and gather feedback on issues, concerns,
and opportunities within the city. The second
open house provided up to-date Plan information
including future land use plans, visions, and
implementation strategies.
·Community Education. A visioning session was
held with a group of students (K-5) through District
728 Community Education Edventures Club.
Students graphically communicated what they like,
what they don’t like, and what they want in the
City of Elk River.
·Social Media and Community Outreach:
Understanding the importance of stakeholder
engagement and community buy-in of the 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:
the City utilized a variety of social media and
community outreach techniques.
·Project Website: The City hosted a project
website which provided meeting agendas,
draft plans and meeting minutes for public
review and comment throughout the process.
·List Serve System: Updates and
announcements were send out using the
City’s list serve system.
·Newsletters: The City’s newsletter was used
to communicate key stakeholder events and
the project throughout the planning process.
·Facebook Page: Announcements of the
Community Open House and opportunities
for the public to comment and engage in the
planning process was posted onto the City’s
Facebook Page.
·Cable TV: Advertisements announcing the
Community Open Houses and encouraging
participation in the process was broadcasted
using ERtV Channel 12.
·Public Hearing and City Council Approval:
Public hearings on the draft comprehensive plan
were held on March 11, 2014 with the Planning
Commission, March 17, 2014 and May 5, 2014
with the City Council. The draft plan was also
reviewed by the Parks and Recreation Commission
at a special meeting on April 2, 2014, and again
by the Planning Commission on April 8, 2014.
On May 19, 2014 the City Council approved and
formally adopted the comprehensive plan.
Chapter 2: A Vision for Elk River / 5
Elk River Comprehensive Plan
Ch
a
p
t
e
r
2
:
A
V
i
s
i
o
n
f
o
r
E
l
k
R
i
v
e
r
Importance of a Vision
According to an old story, two stonecutters were asked what they
were doing. The fi rst said, “I’m cutting this stone into blocks.” The
second replied, “I’m on a team that is building a cathedral.”
This story as fi rst 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 fi rst
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 fi t cleanly with the next “stone block.”
6 / Chapter 2: A Vision for Elk River
Elk River Comprehensive Plan
Overarching Vision Statement
Elk River’s Vision Statement, as expressed below, and adopted in 2010, captures the
“big-picture” aspirations of the City. Specifi c visions for each of the elements of the
Comprehensive Plan are provided in each of the other chapters of this Plan, along with specifi c
goals and objectives on how to attain those visions.
Elk River Vision Statement
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.
·Traffi c 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, fi re, water treatment) create both the perception and reality of safety.
Furthermore, the Vision serves several purposes including:
·The Vision serves as a tool for evaluating
proposals, projects, ideas and new directions. How
does this action fi t with the Vision?
·Creating a Vision Statement allows a shared
understanding of community desires for the future.
·The Vision encourages the community to consider
the future, even a future that is twenty years
distant.
·The Vision provides an anchor in times of confl ict
and change – a way of fi nding common ground and
shared values.
·The Vision encourages imagination, recognizing that
the direction it sets can be the reality of the future.
·The Vision creates energy and enthusiasm for
maintaining the commitment to the Comprehensive
Plan.
Chapter 2: A Vision for Elk River / 7
Elk River Comprehensive Plan
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 effi cient 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.
8 / Chapter 2: A Vision for Elk River
Elk River Comprehensive Plan
This page intentionally left blank.
Chapter 3: Using the Plan / 9
Elk River Comprehensive Plan
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 specifi c actions if
the City is to realize the full value of this Plan. While each chapter
within this Plan offer additional implementation actions specifi c to each
component, the purpose of this Chapter is to provide guidance on using
the Plan.
Ch
a
p
t
e
r
3
:
U
s
i
n
g
t
h
e
P
l
a
n
10 / Chapter 3: Using the Plan
Elk River Comprehensive Plan
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.
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
connected to other chapters. Therefore, the successful
implementation of this Plan requires that the City Council, Boards
and Commissions, City Staff and others consider this Plan as
a whole when making decisions. This balanced approach will
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
community offering unlimited opportunities.”
Capital 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 fi nancial element.
The City’s capital improvement plan (CIP) matches the estimated project costs over a
fi ve-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
fi nd funding sources to fi ll gaps and to coordinate projects with other jurisdictions.
The City adopted its fi rst fi nancial management plan, Key Financial Strategies for Elk
River, in 2002. Since then the City has prepared a fi ve-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) infl uences the type and intensity (density)
of development and private and public costs of these improvements also infl uence
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 fi nancial 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.
Chapter 3: Using the Plan / 11
Elk River Comprehensive Plan
·Which streets should be part of the City’s state
aid system and eligible for funding with municipal
state aid for streets?
·Are other sources of local revenue available to
support this initiative?
·How can the City most effectively leverage funding
from the County and State?
A key strategy to understand existing conditions and
what future improvements are needed would be to
complete a pavement rating and program management
exercise to rate all of the City’s existing street
network. This will inform the City of where we are
and where we need to be in the future in terms of our
existing street network.
Interchange Area Planning
While the actual improvement of highway corridors
may lie years into the future, the City benefi ts from
the continuing proactive approach to planning for
the interchange areas. The location and design of
intersections with Highway 169 and Highway 10
have signifi cant implications for land use, economic
development, and transportation planning.
The nature of highway access infl uences adjacent
land uses. The conversion from intersections to
interchanges or underpasses will change traffi c
movements, may require removal of existing buildings,
and may create a catalyst for new development or
redevelopment. Intersections and interchanges will
also become focal points for automobile traffi c. The
local street system must be designed to support traffi c
volumes and movement patterns. Likewise, the closure
of current intersections would alter the movement
patterns within the City and would alter development
opportunities and patterns at these locations.
A proactive approach provides the City with a basis
for working with MnDOT on planning for highway
improvements. The alternative places the City in a
position of reacting to State proposed designs.
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 specifi c steps that work to achieve the objectives of these plans.
Establish Key Street Corridors
Both the Comprehensive Plan and the City’s
adopted Transportation Plan discuss broad locations
for expansion of the street system. A key to
understanding these improvements will be identifying
and maintaining the routes of these key street
corridors. This initiative should involve preliminary
engineering and transportation planning analysis to
evaluate the physical factors that affect routing. While
several studies have been completed over the past
several years, further analysis is needed to proactively
plan for future routing of streets. This is important
because:
·A designated route allows the city to protect the
corridor from land use confl icts. Without the
routing plan, the City has no means of keeping
development out of the potential right-of-way for
the street. Encroaching development increases the
complexity and cost of the street projects.
·A designated route gives the City the means of
incorporating these streets in future plats.
·This information provides better coordination of
roadway planning with overlapping agencies such
as MnDOT, Sherburne County and Anoka County.
One way of achieving clarity is the creation of
an “offi cial map.” An offi cial map is one tool for
protecting street corridors. It shows existing and
proposed future streets, roads, and highways of
the City and County, the area needed for widening
existing streets, roads, and highways of the City
and County, and existing and future county state aid
highways and state trunk highway rights-of-way. The
statutory authority for the offi cial map comes from
Minnesota Statutes Section §462.359.
Undertake Financial Planning
On-going capital improvement planning is critical in
the success of future street improvement projects.
With limited sources of funding, it is particularly
important to create fi nancially sustainable street
improvement plans. Among the fi nancial issues to
consider in this planning are:
12 / Chapter 3: Using the Plan
Elk River Comprehensive Plan
Establish a Finance Plan
Limited fi nancial 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
specifi c 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 fi nance park and open space initiatives.
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.
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 identifi ed 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.
Chapter 3: Using the Plan / 13
Elk River Comprehensive Plan
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 defi ned 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 traffi c and require parking. None of these conditions fi t
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.
14 / Chapter 3: Using the Plan
Elk River Comprehensive Plan
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:
·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 fi nal plans for the Landfi ll area when fi nal 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.
Chapter 3: Using the Plan / 15
Elk River Comprehensive Plan
·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
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 traffi c issues associated with aggregate and sand
mining areas, plants and the landfi ll;
·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
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.
16 / Chapter 3: Using the Plan
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 specifi c regulations must support the objectives of the
Comprehensive Plan. As a result, an outcome of adopting the Plan will be the review
and modifi cation 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
limitations of the following sections, such means include, but not limited to, zoning
regulations, for the subdivision of land, an offi cial 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 fi t
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 confl icts to integrate the concepts described in this
Comprehensive Plan. Updating the Zoning Ordinance will be a large undertaking that
will require signifi cant 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.
Chapter 3: Using the Plan / 17
Elk River Comprehensive Plan
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 infl uence 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 sacrifi cing the sustainability of neighborhoods.
·Continue to study and make modifi cations as necessary to the park dedication requirements to
enhance the ability to undertake the greenway plan.
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.
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.
18 / Chapter 3: Using the Plan
Elk River Comprehensive Plan
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 fl aws in the
proposed project. These fl aws may be fundamental and require denial of the project,
but modifi cations 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 fl aw 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.
Chapter 4: Community Context / 19
Elk River Comprehensive Plan
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 offi cials 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.
Ch
a
p
t
e
r
4
:
C
o
m
m
u
n
i
t
y
C
o
n
t
e
x
t
20 / Chapter 4: Community Context
Elk River Comprehensive Plan
Geographic Setting
Elk River is situated at the confl uence of the Mississippi and Elk Rivers in Sherburne
County, roughly 34 miles northwest of downtown Minneapolis. It is bordered by
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
State Highway 101 are the three main arterial routes. Elk River has a station on the
Northstar Commuter Rail line to downtown Minneapolis.
Elk River Past, Present and Future
A Comprehensive Plan forms a bridge between the
city’s past and the city’s future. The Plan as a tool
for managing and directing future actions naturally
looks forward, but building the future occurs within the
context of Elk River’s past because the city’s history
and heritage are important parts of community identity.
Failure to recognize and build upon Elk River’s heritage
risks losing the community’s identity – making Elk
River just like any other place.
As the name suggests, Elk River’s roots lie in the
river. The fi rst dam was built in 1851 and led to the
construction of mills, making the river the catalyst for
commerce in the area. Initial development included
a fl our mill and a saw mill. The community was
originally platted shortly thereafter in 1855, as the
town of Orono. This original plat covered an area of
approximately 14 square blocks.
Then, in 1864, the St. Paul and Pacifi c Railroad line
reached Elk River, which drew development further to
the east. The town of Elk River was platted in 1865
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.
In addition to the railroad, farming played an
important role in the development of Elk River. The
original claim of the City’s most famous farmer,
Oliver Kelley, dates to 1850. By 1860, there
were 110 recorded farms in Sherburne County.
This number grew to a peak of 1,190 in 1910.
Agriculture in the area included grain crops, potatoes,
and dairy cattle.
The current City of Elk River covers 44 square miles.
The largest area of the city was added in 1978 by
the merging of Elk River Township. This expansion
of Elk River provided the capacity for recent
development.
This Comprehensive Plan is about planning for the
future of Elk River. It’s about making choices on how
to address signifi cant issues that the community is
currently facing or will be facing in the coming years.
Issues like rising energy costs, increased traffi c
congestion, and changing demographics. Moreover,
this Plan is about guiding change in a positive way.
Elk River
Chapter 4: Community Context / 21
Elk River Comprehensive Plan
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 signifi cant 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
Place 1980
Population
Change
1970-1980
1990
Population
Change
1980-1990
2000
Population
Change
1990-2000
2010
Population
Change
2000-2010
City of Elk
River 6,785201%11,14364%16,44748%22,97440%
City of
Otsego 4769213%52199%6,38922%13,571112%
Big Lake
Township 269737%445265%6,78552%7,3869%
City of Big
Lake 2210118%311341%6,389105%10,06057.50%
Livonia
Township n/an/an/an/a3,91751% 5,95151.90%
City of
Zimmerman n/an/an/an/a2,85183% 5,22883.30%
Sherburne
County 2990863%4194540%64,41754%88,49937.40%
State of
Minnesota 4,075,9077%4,375,0997.10%4,919,4797.30%5,303,92512.40%
Chart 4-I: Population Change
19701980199020002010
Population 2,2526,78511,14316,44722,974
0
5,000
10,000
15,000
20,000
25,000
Source: US Census
Source: U.S. Census
22 / Chapter 4: Community Context
Elk River Comprehensive Plan
Table 4-B: Forecasted Population Change: 2015-2035
Place 2015
Population
Change
2010-2015 2020 Change
2010-2020 2030 Change
2020-2030 2035 Change
2030-2035
City of Elk
River 23,1721%26,60016%31,96020%34,89026%
City of
Otsego 17,49829%19,04040%28,00047%N/AN/A
Big Lake
Township 10,45642%11,65858%13,80618%14,8578%
City of Big
Lake 13,58135%15,68656%19,50324%21,37010%
Livonia
Township 8,13737%9,31857%11,45423%12,4989%
City of
Zimmerman 7,38041%8,59564%10,80226%11,88110%
Sherburne
County 119,04035%134,39052%161,99021%175,4108%
State of
Minnesota N/A N/A 5,772,2589%6,182,3067%N/A N/A
Source: Minnesota State Demographer,WSB and City of Elk River (Building Permit Data and Household Size Projections)
Population Estimates and Projections
In 2006 the Minnesota State Demographer’s Offi ce 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 fi fteen years and a
household size of three people per household.
Chapter 4: Community Context / 23
Elk River Comprehensive Plan
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
living in a house or it could involve unrelated
people sharing an apartment. A family refers to a
parent or grandparent living with at least one child.
In Elk River, most families are comprised of married
couples with children. Yet, in the future, it is likely
that the percentage of married couples without
children living with them will increase. The
percentage of single parent households will also
increase.
The average household size in Elk River in 2010
was 2.79 persons, which was down from 2.85 in
2000.
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 4-2: Average Persons Per Household
19701980199020002010
Year 3.193.162.932.852.79
2.4
2.6
2.8
3
3.2
3.4
Pe
r
s
o
n
s
Source: US Census
Source: City of Elk River
Chart 4-3: Building Permits 1996-2012
19961997199819992000200120022003200420052006200720082009201020112012
BuildingPermits 2352202262042561982525425463442501132420151036
0
100
200
300
400
500
600
Nu
m
b
e
r
of
Pe
r
m
i
t
s
24 / Chapter 4: Community Context
Elk River Comprehensive Plan
The value of residential housing in
Elk River is also increasing, as the
median value of residential property
increased from 2000 to 2010, as
shown to the right.
Table 4-C: Residential Property Valuation 2000-2010
Value of Residential Property 2000 Number2010 Number
Less than $50,0009100
$50,000 to $99,999475262
$100,000 to $149,9991,683647
$150,000 to $199,9991,1811,578
$200,000 to $299,9994822,282
$300,000 to $499,999431,430
$500,000 to $999,999-128
$1,000,000 or more823
Median (dollars)144,800225,400
Source: US Census
Chapter 4: Community Context / 25
Elk River Comprehensive Plan
Under
5
5to9 10to
14
15to
19
20to
24
25to
34
35to
44
45to
54 55Ͳ64 65to
74
75and
over
1980 6086836607085091,150927596385270289
1990 1,0321,0809778757592,1491,8161,086559404406
2000 1,3751,4361,4761,2979572,4613,1171,9631,049663653
2010 2,1401,9371,7391,3771,3813,1253,7552,9912,2631,357725
Ͳ
500
1,000
1,500
2,000
2,500
3,000
3,500
4,000
Po
p
u
l
a
t
i
o
n
Key Demographic Trends
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
refl ects 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 specifi c needs
of major demographic shifts.
Chart 4-4: Age Composition
Source: U.S. Census Comparison Profi le
26 / Chapter 4: Community Context
Elk River Comprehensive Plan
Table 4-D: Race and Origin 2010
Race 2010Elk RiverSherburne CountyMinnesota
White 91%92%83%
Hispanic or Latino3%2%5%
Black or African American 2%2%5%
Asian 2%1.2%4%
Two or More Races2%1.6%2%
American Indian and Alaska
Native
0.4%0.5%1%
91%
3%
2%2%2%
0.4%White
HispanicorLatino
BlackorAfricanAmerican
Asian
TwoorMoreRaces
AmericanIndianand
AlaskaNative
Chart 4-5: Median Age
19701980199020002010
MedianAge 28.230.733.134.534.4
0
5
10
15
20
25
30
35
40
Ag
e
Source: U.S. Census
Source: U.S. Census
Chapter 4: Community Context / 27
Elk River Comprehensive Plan
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
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 RiverSherburne CountyMinnesota
High school graduate or higher94%92%91%
Bachelor's degree or higher29%24%31%
Less
than9th
grade
2%
9thto12th
grade,no
diploma
4%
Highschool
graduate
(includes
equivalency)
26%
Somecollege,
nodegree
26%
Associate's
degree
12%
Bachelor's
degree
22%
Graduateor
professional
degree
8%
Source: US Census
28 / Chapter 4: Community Context
Elk River Comprehensive 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
Characteristics - 2010
CharacteristicsElk RiverSherburne
County
Minnesota
In Labor Force75.6%74.3%70.9%
Employed in Labor Force70.1%69.0%65.9%
Unemployed In Labor Force 5.5%5.3%4.9%
Not In Labor Force24.4%27.3%29.1%
Median household income$70,224$71,819$58,476
Persons below poverty level7.1%8.0%11.0%
It is anticipated that the employment in Elk River will steadily
increase, at least through the year 2035. This employment
forecast is based on several assumptions involving anticipated
population changes, regional employment opportunities,
unemployment, self-employment, multiple job holding, and net
in-commuting.
2010 Employment Industry-
Elk River
37%
15%
26%
9%
13%
Chart 4-6: Income Levels 2010
$0
$10,000
$20,000
$30,000
$40,000
$50,000
$60,000
$70,000
$80,000
$90,000
Median
Household
MedianFamily PerCapita
ElkRiver
State
Management,business,science,
andartsoccupations
Serviceoccupations
Salesandofficeoccupations
Naturalresources,construction,
andmaintenanceoccupations
Production,transportation,and
materialmovingoccupations
Chapter 4: Community Context / 29
Elk River Comprehensive Plan
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 ramifi cations 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 diversifi ed 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.
30 / Chapter 4: Community Context
Elk River Comprehensive Plan
This page intentionally left blank.
Chapter 5: Land Use / 31
Elk River Comprehensive Plan
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.
Ch
a
p
t
e
r
5
:
L
a
n
d
U
s
e
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 specifi c 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 fi ts
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 infl uenced by the form and pace of development.
32 / Chapter 5: Land Use
Elk River Comprehensive Plan
Highway Business
Outside of the Central Business District, the majority
of commercial land uses are placed into this category.
The uses range from commercial areas that are
occupied by professional trades (such as fi nance,
insurance, and real estate) to more intense commercial
activities requiring highway orientation for access
and visibility. Approximately 342 acres or 1.3% of
Elk River is located in the Highway Business land use
category.
Community Commercial
Community Commercial land use makes up 21 acres
or 0.1% of Elk River and focuses on community retail
development that are often service and convenience
oriented. Community Commercial refers to smaller,
neighborhood-oriented commercial uses. Although
limited use of the Community Commercial designation
exists in Elk River, these areas typically appear as
small pockets of retail development along the highway
corridors.
Industrial
The Industrial land use includes all forms of businesses
with manufacturing, distribution, warehousing or
other industrial use and is commonly referred to as
“Light Industrial”, “Medium Industrial” or “General
Industrial.” The majority of Elk River industrial
development is classifi ed as “Light Industrial”. The
Cretex property and an area in the southeastern
portion of the City south of 165th Avenue and
along the Highway 10 corridor are classifi ed as
“Medium Industrial”. Industrial land use makes up
approximately 686 acres or 2.7% of the City.
Rural Residential
Rural Residential includes land currently developed for
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. Included among the
detached single family homes are single family “cluster
subdivisions.” Cluster subdivisions are development
patterns that place housing closer together in order to
preserve greater areas of undeveloped or natural land
and to minimize the number of individual on-site septic
systems. In 2013 Rural Residential comprised of roughly
3,363 acres or 13.0% of the City.
Urban Residential
Urban Residential land use makes up 2,537 acres or 9.8%
of the City and includes land for residential use in areas
that are currently served by municipal sanitary sewer
system. Urban Residential land uses include single family
detached housing and attached housing in the form of
duplexes and townhomes.
High Density Residential
High Density Residential land use consists of forms of multi-
family attached housing units such as apartment buildings
and condominiums. In 2013, roughly 94 acres or 0.4% of
Elk River was classifi ed as high density residential use.
Central Business District (Commercial)
The Central Business District (Commercial) includes retail,
service and offi ce uses in and around Downtown Elk River.
Roughly 70 acres or 0.3% of Elk River is classifi ed as
Central Business District (Commercial) land use.
Inventory and Analysis
Existing Land Use Characteristics
Figure 5-1: 2014 Existing Use of Land 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 refl ects general development patterns and is intended
for general planning purposes only. The land use categories shown in the fi gure are further defi ned as follows:
Chapter 5: Land Use / 33
Elk River Comprehensive Plan
Mining
In 2013, the Mining use makes up 1,869 acres or
7.2% of the City and its primary objective is to
allow the current mining use of the land within this
category. These areas are currently being mined or
are set aside for future mining.
Undeveloped
Undeveloped land refers to land that is in an
undeveloped state, but that is guided and zoned
for future development or use. These lands may
currently be used for agricultural or agricultural
research purpose, or may be vacant land awaiting
future development to occur (specifi cally areas
currently within the MUSA boundary). Wetlands are
not included in this category. In 2013, roughly 8,840
acres or 34.2% of Elk River consisted of vacant/
undeveloped land.
Road Right-of-Way/Railroad
In 2013, road right-of-ways and railroads accounted
for roughly 205 acres or 0.8% of Elk River. Road
right-of-way include city, county, state road right-
of-ways. Refer to Chapter 6: Transportation for
additional information.
Public/Semi-Public
Public/Semi-Public uses make up approximately 564
acres or 2.7% of area in Elk River and refer to larger
tracts of lands used for public and institutional (religious
and educational) purposes. These uses include schools,
City and County governmental buildings, and religious
uses.
Open Space
The Open Space category contains parks and
open spaces, and the City’s recreation system.
Approximately 1,812 acres or 7.0% of land in 2013
is allocated to the Open Space land use. Some of the
existing open space involves private recreation facilities
(such as golf courses).
Wetlands/Open Water
The land use map includes areas identifi ed as wetlands
according to the most recent National Wetland Inventory
as well as bodies of water in the City. This category
contains approximately 5,298 acres or 20.5% of Elk River.
Landfi ll
The Landfi ll area represents land operated in conjunction
with the sanitary landfi ll and makes up approximately
137 acres or 0.5% of Elk River.
Rural Residential
13%
Urban
Residential
10%
High Density
Residential
0%
Central
Business
District
0%
Highway
Business
1%
Community
Commercial
0%
Industrial
3%
Public/Semi-
Public
2%
Open Space
7%
Landfill
1%
Mining
7%
Vacant/Undeveloped
34%
ROW/Railroad
1%
Wetlands
21%
Existing Land Use
34 / Chapter 5: Land Use
Elk River Comprehensive Plan
Figure 5-1. 2014 Existing Use of Land
)m
)m
+¡
+¡
G`WX
G¥WX
Sv
Sy
S¥
GkWX
GlWX
G¥WX
G`WX S¡
Sì
StG¢WX
Sw
Sx
G¥WX
SÎ
1 1.5 2
Miles
nd Use Categories
esidential
esidential
nsity Residential
Business District
nity Commercial
y Business Commercial
dustrial
Medium Industrial
Public/Semi-Public
Mining
Landfill
Agricultural Research
Open Space
Undeveloped
ROW & Railroad
Open Water
Rural Residential
Urban Residential
High Density Residential
Central Business District
Community Commercial
Highway Business Commercial
Light Industrial
l
Medium Industrial
Public/Semi-Public
Mining
Landfill
Agricultural Research
Open Space
Undeveloped
ROW & Railroad
Open Water
00.511.52
Miles
NN
Chapter 5: Land Use / 35
Elk River Comprehensive Plan
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
Existing Land Use Gross
Acres*
Wetland
Acres Net Acres*
Net
Percent
of City
Agricultural Research826.41208.28618.132.7%
Commercial Reserve2,651.5757.492,594.078.8%
Highway Business532.3032.96499.341.8%
FAST986.31166.49819.823.3%
High Density Residential94.4723.8870.590.3%
Landfi ll132.030.75131.280.4%
Industrial938.2781.17857.103.1%
Mining2,651.5757.492,594.078.8%
Mixed Use196.822.17194.650.7%
Mississippi Connection463.705.11458.591.5%
Open Space2,560.26509.812,050.468.5%
Public/Semi Public577.1428.18548.951.9%
Residential 17,265.404,030.7313,234.6757.1%
Water357.38326.3930.991.2%
TOTAL24,702.735,530.9019,171.83100%
Source: WSB & Associates, Inc.
Land Use Plan
The land use plan provides the
framework or “road map” for the
growth and development of the City.
The land use plan serves as a guide
for the character and intensity of
development and will be supported
by other land use controls and
public actions taken pursuant to the
Comprehensive Plan.
The land use map appears in Figure
5-2: Future Land Use. The Plan builds
on the existing community pattern
to achieve the desired vision for the
future of Elk River.
Elk River Comprehensive Plan
36 / Chapter 5: Land Use
Figure 5-2. Future Land Use
00.511.52
Miles
Existing Urban Service Area
Wetlands & 100-Year Floodplain
Residential
High Density Residential
Mixed Use
Development Reserve
Mississippi Connection
FAST
Highway Business
Industrial
Landfill
Mining
Agricultural Research
Public/Institutional
Open Space
Water
Hwy 169 AlignmentsHwy 10 Alignment
)m
)m
+¡
+¡
G`WX
G¥WX
Sv
Sy
S¥
GkWX
GlWX
G¥WX
G`WX S¡
Sì
StG¢WX
Sw
Sx
G¥WX
SÎ
1 1.5 2
Miles
nd Use Categories
tial
nsity Residential
se
rcial Reserve
ppi Connection
y Business
Industrial
Landfill
Mining
Agricultural Research
Public/Institutional
Open Space
Water
Wetlands & 100-Year Floodplain
Existing Urban Service Area
NN
Chapter 5: Land Use / 37
Elk River Comprehensive Plan
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-1b, 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 traffi c
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 traffi c. 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
Future Land Use Characteristics
38 / Chapter 5: Land Use
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 refl ects 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 offi ce 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 specifi c goals to strengthen the study area,
which was broken up into fi ve 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 171st 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 identifi ed the changing traffi c 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.
Chapter 5: Land Use / 39
Elk River Comprehensive Plan
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 traffi c 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 identifi es 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.
40 / Chapter 5: Land Use
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 benefi ts, 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 offi ces, 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 traffi c. 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
include schools, City and County governmental
buildings and religious institutions. The Kelley
Farm is an example of this type of land use.
Open Space
The Open Space category contains the public
and private park and recreation and open
space system. In the future, land will be
added to this category as new public parks are
identifi ed, developed or as open space land is
dedicated pursuant to the Parks element of the
Comprehensive Plan.
In evaluating expansion of the open space
land use, due regard to uniique and substantial
environmental features shall be given.
Chapter 5: Land Use / 41
Elk River Comprehensive Plan
Landfi ll
This area represents land operated in conjunction with the sanitary landfi ll. The Landfi ll
use is consistent with the current land use plan. The Landfi ll 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 infl uence 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
171st 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.
Water
Open water (permanently fl ooded open water, lakes, rivers and streams, and ponds, but
not including wetlands or periodically fl ooded areas) seeks to identify the bodies of water
in the community.
42 / Chapter 5: Land Use
Elk River Comprehensive Plan
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 benefi ts, 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 benefi ts,
redevelopment is more costly and time consuming
than greenfi eld development. The City should seek to
remove obstacles to redevelopment, such that it is as
attractive to new development as greenfi eld sites in
neighboring communities.
Chapter 5: Land Use / 43
Elk River Comprehensive Plan
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
redevelopment of substandard and
underutilized sites within the urban
services area.
·Encourage development and
redevelopment that enhances the existing
character of the neighborhood, protects
natural resources and strengthens the
vitality of the neighborhood.
·Promote the expansion of industrial uses
in those areas identifi ed in the Land
Use Plan. Ensure that the expansion
complements existing uses, protects the
natural environment, and respects the
surrounding neighborhoods.
·Support the renovation and reuse
of existing buildings where feasible.
Encourage measures to increase energy
effi ciency where appropriate.
·Continue to work with adjacent
communities and overlapping jurisdictions
to address issues of mutual interest
that, if not addressed, may constrain
future economic development in Elk
River and/or the adjacent communities or
overlapping jurisdictions.
·Ensure the protection of the City parks
and open spaces are protected where
feasible.
·Where appropriate, coordinate with
landowners and others to encourage the
preservation of existing privately owned
natural areas.
·Focus development and redevelopment in
areas that are already urbanized. Minimize
further encroachments into natural areas
where feasible.
·Understand and recognize the signifi cance
that Elk River’s natural resources had/have
in the development of the City. Continue to
use ordinances and other tools to ensure that
reasonable protection and enhancement of
natural resources.
·Based on market and demand, continue
to work with property owners and the
development community on redevelopment
proposals to ensure consistency with the Plan
and the overall community vision.
·Where appropriate, encourage the continued
use or adaptive reuse of existing buildings
with historic value, rather than the demolition
of the buildings.
·Continually seek and secure opportunities to
expand funding sources.
·Work with the City Council and City Boards
and Commissions on continuous review and
modifi cations to the Plan, as needed.
The City must also update its Zoning Ordinance to address inconsistencies and confl icts
that may exist. Updating the Zoning Ordinance may be a large undertaking that will
require signifi cant 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.
44 / Chapter 5: Land Use
Elk River Comprehensive Plan
This page intentionally left blank.
Chapter 6: Transportation / 45
Elk River Comprehensive Plan
Introduction
The transportation network, like most utilities, is something most
people use daily without really thinking about how it works. Most
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.
Ch
a
p
t
e
r
6
:
T
r
a
n
s
p
o
r
t
a
t
i
o
n
46 / Chapter 6: Transportation
Elk River Comprehensive Plan
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 signifi cant
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), identifi es ongoing issues and concerns, identifi es planned improvements and suggests practices
that can be used to address future needs.
System
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.
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.
Chapter 6: Transportation / 47
Elk River Comprehensive Plan
Chapter 6: Transportation / 47
Figure 6-1. Existing Roadway Network
N
U.S. Highway
County State Aid Highway
County Road
Local Road
G¥
Ì
¡
209th Ave
213th Ave
207th Ave
Mississippi Rd
221st Ave
Ja
r
v
i
s
S
t
Tw
i
n
L
a
k
e
s
R
d
192nd Ave
R
a
nch Rd
E
l
k
L
a
k
e
R
d
Twin La k e s R d
181st Ave
165th Ave
175th Ave
Main St
Pr
o
ct
o
r
R
d
Fillmore St
Tyler St
Ze
b
ul
o
n
R
d
M
e
a
d
o
w
vale Rd
Jackson Ave
School St
1 9 7 t h Ave
1 9 3 r d A ve
2 2 1 st Ave
B
N
S
F
R
a
il
r
o
a
d
48 / Chapter 6: Transportation
Elk River Comprehensive Plan
Jurisdiction
Jurisdiction refers to the agency that owns and maintains a particular roadway. The
roadway network in Elk River is owned and maintained primarily by three governmental
agencies; the Minnesota Department of Transportation (MnDOT), Sherburne County and
the City of Elk River. MnDOT is responsible for interstate roadways (I), trunk highways (TH
101) and US highways (US 169 and US 10). Sherburne County is responsible for county
roads (CR 30, 32, 33, 34, 35, 40, 44, 79, and 121) and county state aid highways (CSAH
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
owners and the property owners are responsible for plowing the streets in the winter and
repairing the roadways when they need to be fi xed.
The Sherburne County transportation plan identifi es potential jurisdictional transfers for the
future. No timing has been identifi ed, but the following roadways have been identifi ed to be
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.
In addition to these changes, the County has identifi ed future roadways that it would
operate and maintain within the City of Elk River. These changes include: 221st 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
Street). The county plan also identifi es new county connections that currently do not
exist and are not yet a part of the roadway network. These routes include a new CSAH
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 Identifi ed Jurisdictional Changes shows the proposed changes.
Functional Classifi cation
As drivers, people are aware that roadways serve different purposes. Some roadways
accommodate high traffi c 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 classifi cation. A
roadway’s functional classifi cation identifi es its role in the roadway hierarchy used by
agencies and planning offi cials to manage access, setback and other design-related features
of a roadway. It also infl uences the types of land use and development in an area. For
example, a Principal Arterial generally has higher traffi c 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 Classifi cation shows existing functional classifi cation.
Chapter 6: Transportation / 49
Elk River Comprehensive Plan
Chapter 6: Transportation / 49
Figure 6-2. Sherburne County Identifi ed Jurisdictional Changes
N
City to County
County to City
Future County Road - New Alignment
209th Ave
213th Ave
207th Ave
Mississippi Rd
221st Ave
Ja
r
v
i
s
S
t
Tw
i
n
L
a
k
e
s
R
d
192nd Ave
R
a
nch Rd
E
l
k
L
a
k
e
R
d
Twin L a k e s R d
181st Ave
165th Ave
175th Ave
Main St
Pr
oc
t
o
r
Rd
Fillmore St
Tyler St
Ze
bu
l
o
n
R
d
M
e
a
d
o
w
vale Rd
Jackson
Av
e
School St
1 9 7 t h Ave
1 9 3 r d A ve
2 2 1 s t Ave
Elk River Comprehensive Plan
50 / Chapter 6: Transportation
Figure 6-3. Exisiting Functional Classifi cation
N
)m
)m
+¡
+¡
G`WX
G¥WX
Sv
Sy
S¥
GkWX
GlWX
G¥
SÌ
G`WX
S¡
Sì
St
Sw
Sx
G¥WX
SÎ
Functional Classification
Principal Arterial
Minor Arterial
Collector
Local
209th Ave
213th Ave
207th Ave
Mississippi Rd
221st Ave
Ja
r
v
i
s
S
t
Tw
i
n
L
a
k
e
s
R
d
192nd Ave
R
a
nch Rd
221st Ave
E
l
k
L
a
k
e
R
d
Jackson Ave
Twin L a k e s R d
181st Ave
School St
165th Ave
175th Ave
Main St
Proct
o
r
R
d
Fillmore St
Tyler St
Zeb
u
l
on
R
d
M
e
a
d
o
w
vale Rd
O r o n o P k w y Main St
197th Ave
Chapter 6: Transportation / 51
Elk River Comprehensive Plan
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 signifi cant continuity at a state or regional level,
serve longer trips (through traffi c), and generally have higher posted
speeds and less access. They typically only connect with other
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.
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
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.
Collector: Collector roadways (e.g., Tyler Street and CSAH 1)
provide links to local activity centers and connections between
arterial routes and local city streets. These roadways are intended
to bring traffi c from various nodes and funnel it to the arterial
network. Collector streets have continuity at a local level and
generally serve medium to short trips. They serve a variety of land
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.
Figure 6-4: Access versus Mobility
Source: A Policy on Geometric Design
of Highways and Streets, AASHTO,
2011 AASHTO Green Book
Proportion of Services
MobilityArterials
Collectors
LocalsLand Access
52 / Chapter 6: Transportation
Elk River Comprehensive Plan
Table 6-A below shows the different characteristics associated with each functional class type.
Characteristics Roadway Classifi cation
Principal ArterialMinor ArterialCollectorLocal
Place Connections
Connect to the Twin Cities
and with other communities
in Minnesota.
Provide connections to
nearby communities,
major traffi c generators
and regional business
concentrations.
Interconnect neighborhoods and minor
business concentrations. Provide
supplementary interconnection of major
generators with regional business
concentrations.
Interconnect blocks within
residential neighborhoods
and land parcels with
commercial and industrial
developments.
Spacing
Spacing should vary in
relationship to density – 2 –
6 miles.
1 - 2 miles or as needed.
As needed in conjunction with
minor arterials to provide adequate
connections of places. In addition,
collectors should be designated at an
average spacing of not less than 4
miles.
As needed to access land
uses.
System
Connections
To interstate freeways,
other principal arterials and
minor arterials. Connections
should be limited.
To most freeways and other
principal arterials, other
minor arterials and collectors
and some local streets.
To minor arterials, other collectors and
local streets
To a few minor arterials.
Primarily to collectors and
other local streets.
Trip Making Trips greater than eight
miles.
Medium-to-long trips (2-6
miles) at moderate speeds.
May have longer trips to
access the principal arterial
network.
Short trips (depending upon
development density) at low to
moderate speeds. Longer trips for
accessing the arterial network.
Short trips (under 2 miles)
at low speeds. Longer trips
accessing the collector
network.
Mobility vs.
Access
Greater emphasis on mobility
than land access. Little or
no direct land access.
Emphasis on mobility rather
than on land access. Direct
land access should be limited
to concentrations of uses
rather than driveways.
Equal emphasis on mobility and
land access. Direct land access
predominantly to development
concentrations.
Emphasis on land access, not
mobility. Direct land access
predominantly to residential
and agricultural land uses.
Access SpacingDefer to MnDOT guidelines.Defer to county guidelines.Local guidelines Local guidelines for distances
between driveways.
System MileageBetween 2 and 10 percent
Between 6 and 25 percent
with principal and minor
arterials
Between 5 and 25 percentBetween 55 and 80 percent
Intersections
Grade separated desirable.
High-capacity controlled
at-grade intersections at a
minimum
Traffi c signals and cross-
street stops Four-way stops and some traffi c signalsAs required
ParkingNoneRestricted as necessaryRestricted as necessaryPermitted as necessary
Large TrucksNo restrictions Restricted as necessary –
generally not restricted Restricted as necessaryPermitted as necessary
Management Tools
Access control/spacing,
median barriers, and traffi c
signal progression
Traffi c signal progression
and spacing and land access
management/control
Number of lanes, traffi c signal timing
and land access management
Intersection control, cul-
de-sacs, diverters, traffi c
calming measures
Vehicles Carried> 10,0001,000 – 30,000250 – 15,000Less than 1,000
Posted Speed Limit> 40 mph35 – 55 mph30 – 40 mph30 mph maximum
Right of Way 100 – 300 feet (depends
upon design)60 – 150 feet60 – 100 feet50 – 80 feet
Table 6-A: Functional Classifi cation Characteristics
Chapter 6: Transportation / 53
Elk River Comprehensive Plan
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 landfi ll at the
northern end of the City and the concrete plants
located closer to the southern half of the City. Truck
traffi c 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 traffi c fl ow, 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.
54 / Chapter 6: Transportation
Elk River Comprehensive Plan
Figure 6-5: Location of Elk River station
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
few specialized services that can assist targeted
residents. The different services are described in
the following sections.
Northstar Commuter Rail Line
Since the passage of the 2004 Comprehensive
Plan, the former Northstar Commuter Coach
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
trips to and from Big Lake to Minneapolis both in
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 171st
Lane. There are over 750 parking stalls at the lot,
some of which are available for overnight parking.
Figure 6-5, provided by Metro Transit, shows the
location of the park and ride.
Chapter 6: Transportation / 55
Elk River Comprehensive Plan
Trails
As noted in the introduction of this chapter, there has
been notable change in the transportation network
over time. At one point, sidewalks and trails were
recognized for recreational purposes and not for
serving a transportation purpose. That thought
process is changing. Today there is recognition that
most trips start and/or end with someone walking
and bicycle commuting rates are increasing within the
state. Because of the evolving role of the trail and
sidewalk systems, it is important to address them
in both the transportation and parks and recreation
sections of the Comprehensive Plan.
Figure 6-6: Existing Trails and Sidewalks shows the
existing trail and sidewalk system. As shown in the
fi gure, 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.
RiverRider Public Transit
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
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.
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
who are unable to transport themselves. There is also
service to the St. Cloud VA Medical Center; however,
this is done through volunteer drivers in their own
cars. This service is free. Hours are limited, and rides
must be scheduled at least 48 hours in advance.
Sherburne County Volunteer Driver Program
The Sherburne County Volunteer Driver program
provides necessary rides for clients of Sherburne
County when no other transportation is available.
Necessary appointments include: medical
appointments, social services, mental health and other
purposes approved by the county. Seniors 65+ may
qualify for the program according to maximum income
guidelines. Service hours are limited.
Elk River Comprehensive Plan
56 / Chapter 6: Transportation
Figure 6-6. Existing Trails and Sidewalks
N
209th Ave
213th Ave
207th Ave
Mississippi Rd
221st Ave
Ja
r
v
i
s
S
t
Tw
i
n
L
a
k
e
s
R
d
192nd Ave
R
a
nch Rd
E
l
k
L
a
k
e
R
d
Twin La k e s R d
181st Ave
165th Ave
175th Ave
Main St
Pr
o
cto
r
R
d
Fillmore St
Tyler St
Ze
b
u
l
on
R
d
M
e
a
d
o
w
vale Rd
Ja
c
ks
o
n Ave
School St
1 9 7 t h Ave
1 9 3 r d A ve
Main St
171st St
2 2 1 st Ave
U.S. Highway
County State Aid Highway
County Road
Local Road
G¥
Ì
¡
Sidewalk
Trail
Chapter 6: Transportation / 57
Elk River Comprehensive Plan
intent of these improvements is to make the roadways
less congested, to develop supporting frontage/
backage roads for local trips and to improve safety
by eliminating or improving the existing at-grade
intersections and driveways.
Along with proposed improvements identifi ed for US
10 and US 169, the City of Elk River and Sherburne
County have the opportunity to develop or preserve
local north-south and east-west corridors.
Traffi c Diversion through
Neighborhoods
Residents are concerned that as MnDOT roadways
become more congested, motorists will look for
alternative routes that take them out of the congestion
and keep them moving – even if it is a less direct
route. However, a majority of the through traffi c
(traffi c not destined to stop in Elk River) is not likely
to divert to other roadways unless it is a county road
simply due to the existing roadway network. Because
of the way Elk River has developed, in small sections
at a time and in a more rural style, there are very few
continuous north-south and east-west routes that
have been developed, and even fewer are owned by
the city. The few continuous routes that exist are
generally state or county roadways which are intended
to accommodate heavier traffi c volumes. While this
does not mean that residential areas are not disturbed
by traffi c, there are few city streets that are going to
experience major traffi c fl ows from through traffi c as
a result of congested MnDOT roads.
Issues and Opportunities
The previous section of this chapter provided an overall description of the transportation network as it exists
today. This section identifi es the various issues associated with the network and identifi es opportunities for
addressing concerns.
A number of issues and concerns related to roadways were identifi ed 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
Congestion continues to be a problem on US 10 and
US 169, especially during peak travel periods and
during the weekend. Both US 10 and US 169 link the
Twin Cities and Greater Minnesota. As such, there is
commuter, freight and recreational traffi c using these
roadways on a regular basis. This mix of traffi c can
also contribute to the congestion experienced by users.
US 10 and US 169 are both principal arterials that
provide continuous travel fl ow. 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
arterial facilities that provide a continuous connection.
Because there are few alternatives, traffi c will
continue to primarily use these routes to get through
the area. Additionally, because there are few
alternatives to these routes, local residents/businesses
are also required to use these routes for short trips or
to use circuitous routes through local streets.
MnDOT has recognized the problems on both US 10
and US 169 for well over a decade. Serious efforts
were initiated to identify improvements on both the
corridors in the early 2000s. The City of Elk River
and Sherburne County were a part of those efforts.
Generalized concepts suggested that these roadways
eventually be converted to freeway facilities to
accommodate projected traffi c demands. Interim
improvements in some locations were also identifi ed.
Following the completion of the generalized plans,
MnDOT, the City and the County, along with input
from property owners and stakeholders, developed
specifi c improvements for the corridors that were
documented in two environmental assessments. The
58 / Chapter 6: Transportation
Elk River Comprehensive Plan
and east-west connections in areas where there is
limited development today. This will ensure a more
even distribution to traffi c in the northern half of the
community and provide for better connectivity over
the long-term. Coordination with Sherburne County
will be key to the success of these efforts.
The proposed functional classifi cation map identifi es
potential collector and arterial routes that could be
developed to help address connectivity needs. Some
of the proposed changes shown on the map are
included because Sherburne County’s transportation
plan identifi ed new connections or modifi cations to
the roadway status. A few of the county’s proposed
changes include new alignments through public areas
such as parks. Coordination and discussion between
the county and the city will occur before any new
roadways are constructed. The discussion between
the agencies will include ways to minimize impacts to
existing land uses.
Non-Motorized Transportation
Facilities and System
The City of Elk River recognizes that a number of
systems make up the transportation network, and
that not all of them involve the use of single occupant
vehicles on the roadway. As shown in Figure 6-6,
there are a limited number of sidewalk and trail
facilities within the community and they do not form
a cohesive system at this time. Like the roadway
system, lack of continuous sidewalk and trail routes
will hamper the mobility of pedestrians and bicyclists,
result in safety problems (sometimes there is no
space to walk/ride when the system suddenly ends
and opportunities are limited for those with physical
disabilities) and limit system users (who wants to use
a system that does not link to anything?).
The City has begun to address the existing
defi ciencies by requiring new developments to include
construction of either sidewalks or trails as part of
their plans. In addition, the City has also identifi ed
a number of new sidewalk and trail connections
that serve as links between neighborhoods,
recreational areas, downtown Elk River, and along key
Residential neighborhoods are more likely to
experience diverting traffi c from other local residents
and/or businesses that are familiar with the roadway
network and know how to link from one neighborhood
to the next. Most through traffi c will not have the
patience to fi gure out a route that would get them
to where they want to go in a timeframe that would
make it worth the effort.
Improvements identifi ed by MnDOT, the County and
the City for US 169 and US 10 will address a majority
of these concerns. Additionally, if the County and
City develop other continuous routes, there will be
opportunities for local traffi c to avoid US 169 and US
10. Providing opportunities for local trips will free up
capacity on MnDOT’s roadways, thereby improving
traffi c fl ow and resulting in less diversion. The
proposed functional classifi cation map shown in the
last section of this chapter identifi es potential collector
and arterial routes that could be developed to help
address the issue.
Lack of Continuous North-South
and East-West Routes (arterials and
collectors)
The City of Elk River has been noted as having few
continuous north-south and east-west routes. This
lack of continuous routes is a result of natural barriers
as well as the development patterns that have
occurred over time. As noted above, much of the
City’s development has come in small sections at a
time, has been more rural in nature, and has been
constrained by the BNSF Railway, the Mississippi
River and other resources in the area.
At this time, it will be quite challenging to provide
good continuity in areas that have already mostly/fully
developed. There may be some limited opportunities
to provide better connectivity than what exists today
in locations with some existing development (but not
fully developed), but there will be impacts to homes
and businesses in these locations.
The City should use the opportunity when it updates
its transportation plan to identify new north-south
Chapter 6: Transportation / 59
Elk River Comprehensive Plan
bicycle facilities; however, the existing network is not
connected to these improvements.
There are seven locations on US 10 with traffi c
signals that provide accommodations for pedestrians
and bicyclists to cross the highway. The seven
signalized intersections include: 171st Avenue, Main
Street, Jackson Avenue, Proctor Avenue, Upland
Avenue, Joplin Street and Waco Street. There are
no grade-separated crossings of US 10 today. It
should also be noted that there are gaps at some of
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
the fi rst cross street, sometimes after the fi rst parcel,
etc.). These gaps create problems for users – users
fi nd themselves trapped at the intersection.
The Mississippi Connections redevelopment plan
identifi es the need for a grade separated crossing
between downtown and the blocks to the north of
the train tracks, in the area currently occupied by the
American Legion. The proposed sidewalk and trail
network map (Figure 6-6) shows these connections
being addressed. The map also includes additional
crossings on both US 10 and US 169. It should also
be noted that the long-term plans to convert US 10
and US 169 to a freeway will include accommodations
for both pedestrians and bicyclists at interchange and
overpass locations.
Because the future trail and sidewalk plan is very
comprehensive, there are a number of proposed
corridors throughout the city. The City should
take the opportunity as part of its updates to the
Transportation Plan and the Parks and Trails Plan
to develop criteria that can be used to prioritize
construction of trails/sidewalks in areas that are
already developed (efforts for new trails/sidewalks
should be included as a requirement for new
development areas and for redevelopment sites).
transportation corridors. Figure 6-7: Proposed Trails
and Sidewalks shows the proposed trail/sidewalks.
Along with facilities for pedestrians and bicyclists,
transit is another opportunity to provide connections
for those that cannot or choose not to drive. The City
has been very supportive of Northstar Commuter Rail
and has developed a station area that supports transit
needs. Additional transit-supported development is
expected in this area. As part of these efforts, there
will be opportunities to include additional provisions
for non-motorized traffi c.
Pedestrian and Bicycle Crossings
(US 10 and US 169)
The provision of safe and well-spaced crossings of
US 10, US 169 and other high volume roadways
for pedestrians and bicyclists is a concern for
system users. Both US 10 and US 169 are larger
transportation facilities that can be challenging for
pedestrians and bicyclists to cross, especially during
peak periods when traffi c is congested. From a safety
perspective, even though technically pedestrians
have a right to cross the roadway at unmarked
intersections, the true crossings on both US 10 and
US 169 are at signalized intersections and on cross
streets where there is a grade separation (interchange
or overpass). Traffi c signals play an important role in
getting pedestrians and bicyclists across these busy
roadways. They provide adequate gaps for both
users to cross the roadway and they offer a controlled
crossing that keeps their movement separated from
motor vehicle movements.
On US 169 there are six locations where there are
facilities in place for pedestrians and bicyclists to
cross the highway with the assistance of a traffi c
signal or a grade-separated (bridge, overpass or
interchange) facility. Locations with traffi c signals
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
Elk River Comprehensive Plan
60 / Chapter 6: Transportation
Figure 6-7. Proposed Trails and Sidewalks
N
209th Ave
213th Ave
207th Ave
Mississippi Rd
221st Ave
Ja
r
v
i
s
S
t
Tw
i
n
L
a
k
e
s
R
d
192nd Ave
R
a
n
ch Rd
E
l
k
L
a
k
e
R
d
Twin L a k e s R d
181st Ave
165th Ave
175th Ave
Main St
Pro
cto
r Rd
Fillmore St
Tyler St
Zeb
u
lon
R
d
M
e
a
d
o
w
vale Rd
Jac
kson
Ave
School St
1 9 7 t h Ave
1 9 3 r d A ve
Main St
171st St
2 2 1 st Ave
Existing Sidewalk
Existing Trail
Proposed Trail
Lakes
Chapter 6: Transportation / 61
Elk River Comprehensive Plan
Future Improvements and Guidelines
Over the past several years, there have been a number of studies completed that have
addressed or studied the issues identifi ed above and/or other issues identifi ed by the City. The
recommendations of these studies, along with implementation guidelines for addressing the
issues and opportunities identifi ed 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 identifi ed 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 identifi ed 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 identifi ed in the environmental document
were confi rmed in additional studies (Mississippi Connections Redevelopment
Framework, 171st Focused Area Study, and 171st 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 identifi ed for improvements at the state or local level.
Because funding has not been identifi ed or programmed, the timing of
improvements is uncertain as is the feasibility of making them as identifi ed.
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 identifi es specifi c improvements by highway.
Elk River Comprehensive Plan
62 / Chapter 6: Transportation
Figure 6-8. Proposed Highway Improvements (Long-Term)
N
Proposed Interchange
Proposed Underpass
Existing Interchange
Interchange Search Area
Construction of interchanges will eliminate existing access
pointsontoUS10andUS169Frontageroadsarealsoproposed
Existing Pedestrian Overpass
209th Ave
213th Ave
207th Ave
Mississippi Rd
221st Ave
Ja
r
v
i
s
S
t
Tw
i
n
L
a
k
e
s
R
d
192nd Ave
R
a
nch Rd
221st Ave
E
l
k
L
a
k
e
R
d
Twin L a k e s R d
181st Ave
165th Ave
175th Ave
Main St
Pro
ct
o
r
Rd
Fillmore St
Tyler St
Ze
b
u
l
o
n
R
d
M
e
a
d
o
w
vale Rd
Ja
ckson
Av
e
School St
1 9 7 t h Ave
1 9 3 r d A ve
Main St
1 71st St
SSttt
Construction of
interchanges will
eliminate existing access
points onto US 10 and US
169. Frontage roads are
also proposed in locations
along the corridor, but are
not shown on this map.
Chapter 6: Transportation / 63
Elk River Comprehensive Plan
·Auxiliary lanes and collector-distributor road between
Main and School Streets and School Street and 193rd
Avenue.
·US 169 is lowered (reduces reconstruction of local
roadways that cross over the highway)
·US 169 shifted slightly to the east near BNSF Railway
·BNSF Railway shifted
·Existing interchange at US 10/US 169/TH 101 is
upgraded to better channel all movements
·Interchange at Main Street
·Interchange at School Street
·Interchange at Jackson/193rd Avenue and 197th
Avenue (split diamond)
·Interchanges at 205th Avenue/CSAH 33 (already
constructed)
·Interchange at 221st Avenue
·Frontage and backage roads
·Accommodations for pedestrians and bicyclists to
cross both US 10 and the railroad
·Pedestrian and bicycle trails/sidewalks along crossings
and frontage roads
All other public street and driveway access will be
eliminated from the corridor, with access provided at the
interchange locations.
It should also be noted that there is an existing pedestrian
bridge located north of School Street that is used by both
pedestrians and bicyclists to cross US 169. This bridge
connects to local trails on both sides of the highway.
This pedestrian bridge could remain in place with
proposed improvements.
Implementation
Because no timeframe has been developed, most of
the changes identifi ed for US 10 and US 169 will occur
incrementally as funding becomes available, although
some portions of the project need to be coordinated
with one another. In general, construction of proposed
frontage and backage roads can occur before interchanges
are constructed and right of way for them can be
preserved as parcels develop and/or redevelop. The
City of Elk River should work with MnDOT and others to
identify funding sources and to move the various projects
forward. Partners should also consider low-cost- high
benefi t improvements that can be implemented ahead of
fi nal implementation of the freeway vision.
US 10
US 10 has been identifi ed for conversion to a freeway
over the long-term between US 169 and CR 44. The
improvements identifi ed by MnDOT and its partners
also require shifting the BNSF Railway in order to
create grade separations with both US 10 and the
railroad. The grade separations will enable vehicles (as
well as pedestrians and bicyclists) to cross the railroad
and US 10 without having to be stopped by trains or
mainline traffi c on US 10. It is anticipated that these
changes will take 20 years or more to implement.
Proposed improvements include:
·Four travel lanes (2 in each direction) with
shoulders and a median barrier
·Interchange at Main Street
·Interchange at Proctor Avenue
·Interchange at Upland Avenue
·Underpass at Jackson Street
·Frontage road system between Upland Avenue and
Main Street
·Access at Lowell Avenue is eliminated and will be
served by the frontage road
·Accommodations for pedestrians and bicyclists to
cross both US 10 and the railroad
·Pedestrian and bicycle trails/sidewalks along
crossings and frontage roads
In addition to these improvements, the 171st Avenue
Focused Area Study recommends constructing a new
interchange between 165th and 171st Avenues. This
interchange will require frontage road connections to
eliminate other existing at-grade intersections. This
interchange is also shown in Figure 6-8 Proposed
Highway Improvements (long-term).
US 169
Like US 10, US 169 has also been identifi ed to be
converted to a freeway facility by MnDOT, Sherburne
County, the City of Elk River, Livonia Township
and the City of Zimmerman. Other improvements
identifi ed for US 169 include:
·Ultimate six-lane facility (initially constructed
as a four-lane freeway that can be modifi ed by
converting the inside shoulders)
Elk River Comprehensive Plan
64 / Chapter 6: Transportation
Figure 6-9. Detailed U.S. 10 and U.S. 169 Improvements
N
U.S. 169
U.S. 10
Improvements
209th Ave
213th Ave
207th Ave
Mississippi Rd
221st Ave
Ja
r
v
i
s
S
t
Tw
i
n
L
a
k
e
s
R
d
192nd Ave
R
a
nch Rd
E
l
k
L
a
k
e
R
d
Twin L a k e s R d
181st Ave
165th Ave
175th Ave
Main St
Pr
o
c
tor
Rd
Fillmore St
Tyler St
Zeb
u
l
o
n
R
d
M
e
a
d
o
w
vale Rd
Ja
ckson
Ave
School St
1 9 7 t h Ave
1 9 3 r d A ve
2 2 1 st Ave
Chapter 6: Transportation / 65
Elk River Comprehensive Plan
of existing collector or arterial roadways or include
construction of new routes as development
occurs. Much of this proposed collector network
was identifi ed as part of the US 10, US 169, the
Mississippi Connections Redevelopment Framework,
and 171st Avenue Focused Area studies.
Implementation
In order to implement changes that require
construction of new routes or segments of routes, it
is recommended that proactive efforts be undertaken
by the City in order to preserve the right of way that
is needed rather than building segments of roadways
as property develops. Waiting until development and/
or redevelopment occurs does not protect the route, it
can lead to increased acquisition costs and it may not
occur in the correct timeframe. Things the City can
do to preserve the routes:
·Complete a corridor study to identify the preferred
alignment and location of the route
·Adopt an offi cial map
·Advance purchase the right of way needed
It is important to coordinate these efforts with
MnDOT and Sherburne County if the efforts impact
county or state routes to ensure that an alignment
can be identifi ed that serves the transportation need,
minimizes impacts to existing development (regardless
of use), and has the support of the required agencies.
It also provides an opportunity to pool funding
resources.
If proactive elements are not completed in time and a
development does come along, it is important for the
City to include the locations of potential connections
as part of discussions with property owners and
developers prior to them submitting an offi cial
application for approval.
Summary of Roadway Improvements
and Changes
The previous sections highlighted a number of
roadway network changes and improvements.
Figure 6-11 shows all of the proposed changes
graphically. Some of the proposed changes, such as
the connection between Proctor and Upland Avenues
along the School Street alignment will not be made
unless or until requested by the affected property
owner.
Traffi c Diversion and Continuous
Routes (arterials and collectors)
The lack of continuous north-south and east-west
collector and arterial routes creates connectivity
problems and results in congestion on the limited
number of continuous routes that do exist. At times
this results in traffi c using county and local streets
to get to destinations that could be better served by
having additional continuous routes. Implementation
of improvements to US 169 and US 10 (along with
associated frontage and backage roads) will help
provide some of the connectivity that is currently
lacking. However, these improvements are not
programmed for the near future, so additional
connections are needed.
Figure 6-10: Future Functional Classifi cation shows
the proposed future functional classifi cation map
for the City of Elk River. This map includes facility
upgrades to collector and arterial routes on county
roadways identifi ed by Sherburne County as part of its
long-term transportation plan. Some of the changes in
functional classifi cation include constructing additional
roadways (shown as dashed lines) or segments of
roadways. It should be noted that the proposed routes
shown on the map are conceptual only. Discussions
between the city and county will occur prior to
any new roadway construction. As part of these
discussions, the city and county will identify ways to
minimize impacts to existing residential and park uses.
Other changes over time may include additional
investments such as roadway widening (on minor
arterials), pedestrian and bicycle facilities, limiting
driveway access for newly constructed segments,
consolidating driveway access when redevelopment
occurs, etc.
In addition to changes on the county network, there
are also classifi cation changes recommended for
collector roadways on the city system. Most of
the proposed collector roadways are a continuation
Elk River Comprehensive Plan
Figure 5-2: Future Land Use
N
66 / Chapter 6: Transportation
Figure 6-10. Future Functional Classifi cation
Jarvis St
Twin
L
a
k
es
R
d
Functional Classification
Principal Arterial
Minor Arterial
Proposed Minor Arterial
Collector
Proposed Collector
Local
209th Ave
213th Ave
207th Ave
205th Ave
193th Ave
197th Ave
Mississippi Rd
221st Ave
Ja
r
v
i
s
S
t
Tw
i
n
L
a
k
e
s
R
d
192nd Ave
R
a
nch Rd
E
l
k
L
a
k
e
R
d
Jackson Ave
Twin La k e s R d
181st Ave
School St
165th Ave
175th Ave
Main St
Pro
ct
o
r
R
d
Fillmore St
Tyler St
Zeb
u
l
on
Rd
M
e
a
d
o
w
vale Rd
Main St
F
r
e
e
por
t
S
t
Gates
Ave
Highlan
d
R
d
O r o n o Pkwy
J
o
p
l
in St
Or
2 2 1 st Ave
)m
)m
+¡
+¡
G`WX
G¥WX
Sv
Sy
GkWX
GlWX
G¥
SÌ
G`WX
S¡
ì
St
G¥WX
SÎ
S¥
Chapter 6: Transportation / 67
Elk River Comprehensive Plan
Chapter 6: Transportation / 67
Figure 5-2: Future Land UseFigure 6-11. Future Network
N
Future county road from
existing city street
Future county road from a new route Future city street from existing
county road
Future city street from a new street
Interchange area - Additional study needed
Jarvis St
Twin
L
a
k
es
R
d
Or
U.S. 10 Improvements
U.S. 169 Improvements
209th Ave
213th Ave
207th Ave
Mississippi Rd
221st Ave
Ja
r
v
i
s
S
t
Tw
i
n
L
a
k
e
s
R
d
192nd Ave
R
a
nch Rd
E
l
k
L
a
k
e
R
d
Twin La k e s R d
181st Ave
165th Ave
175th Ave
Main St
Pr
o
c
t
o
r
Rd
Fillmore St
Tyler St
Zeb
u
l
o
n
R
d
M
e
a
d
o
w
vale Rd
Ja
ckson
Av
e
School St
1 9 7 t h Ave
1 9 3 r d A ve
2 2 1 st Ave
Collector
Route
Collector
Route
Collector
Route
Collector
Route
Collector
Route
Collector
Route
Minor
Arterial
Route
Minor
Arterial
Route
Minor
Arterial
Route
Min
Arte
Rou
Minor
Arterial
Route
Collector
Route
Collector
Route Collector
Route
Local
Route
68 / Chapter 6: Transportation
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 identifi ed
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 benefi t for users and thus should be prioritized for implementation.
One of the ways that the City can improve connections and crossings for pedestrians
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 traffi c signal
construction and traffi c signal replacement (MnDOT has upgraded most of the traffi c
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.
Chapter 7: Housing / 69
Elk River Comprehensive Plan
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
and contributes to a community’s sense of place. Many business
owners look at the type and supply of housing in a community when
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 fi ts 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.
Ch
a
p
t
e
r
7
:
H
o
u
s
i
n
g
70 / Chapter 7: Housing
Elk River Comprehensive Plan
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 identifi ed 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 Type2000
Units
2000
Percent
2010
Units
2010
Percent
2010 Sherburne
County Percent
2010 State
Percent
Single-Family Detached4,21672.9%5,66666.9%78.7%67.5%
Single-Family Attached4327.5%1,27715.1%5.9%7.2%
2-4 Unit Multi-Family971.7%2042.4%1.6%4.5%
5+ Unit Multi-Family1,00617.2%1,23414.6%11.0%17.1%
Manufactured Homes310.1%861.02.8%3.7%
Total Units5,782100%8,467100%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.
Chapter 7: Housing / 71
Elk River Comprehensive Plan
Table 7-C: Housing Tenure by Type - 2010
Units per
Structure
Owner
Occupied
Units
Percent
Owner
Occupied
Percent
Owner
Occupied
County
Percent
Owner
Occupied
State
Renter
Occupied
Units
Percent
Renter
Occupied
Percent
Renter
Occupied
County
Percent
Renter
Occupied
State
Single-Family Detached5,29866.0%74.2%62.52212.8%6.6%5.0
Single-Family Attached1,01412.6%5.1%5.62172.7%1.2%2.0
2-4 Unit Multi-Family530.7%0.1%0.91001.2%1.1%3.5
5+ Unit Multi-Family510.6%0.2%1.998312..3%10.0%15.4
Mobile Home340.4%1.2%2.7520.6%0.3%0.5
Total Units5,782100%8,467100%100%100%
Source: 2007-2011 American Community Survey 5-Year Estimates
Table 7-B: Household Type Distribution – 2000 and 2010
Change (Number)Change (Percent)
200020102000-20102000-2010
Household TypeElk RiverCountyMNElk RiverCountyMNCountyMNElk RiverCountyMNMN
Family Households:
Married-couple:3,66514,2941,018,2454,89419,1631,060,5091,2294,86942,26433.5%34.1%4.2%
Male household, no
wife present:
N/AN/A68,1143361,06489,707N/AN/A21,593N/AN/A31.7%
Female household,
no husband present:
5191,615168,7827162,271198,79919765630,01738.0%40.6%17.8%
Total, Family
Households
4,40221,5811,255,1415,94622,4981,349,0151,54491793,87435.1%4.2%7.5%
Non-Family
Households
1-person household9733,393509,4681,6385,101584,0086651,70874,54068.3%50.%14.6%
2 or more-person
household
2891,445130,5184391,973154,20415052823,68651.9%36.5%18.1%
Total, Non-Family
Households
1,2624,838639,9862,0777,074738,2128152,23698,22664.6%46.2%15.3%
Total5,66421,5811,895,1278,02329,5722,087,2272,3597,991192,10041.6%37.0%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.
72 / Chapter 7: Housing
Elk River Comprehensive Plan
Vacancies
In 2010, the City of Elk River faced an overall housing
vacancy rate of 5.4%, which is 1.3% lower than the
vacancy rate for the County and 5.1% lower than that
of the State. In the year 2000, Elk River’s vacancy rate
was also lower than the rates of both the County and
the State. From 2000 to 2010, the County vacancy
rate increased just 1.2% compared to a 2.2% increase
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 signifi cant decline. Refer to Table
7-D: Vacant Housing by Type-2010 for additional
information.
Value of Housing
The median value of owner-occupied housing
units in Elk River in 2010 was $225,400– up
55.7% (or $80,600) from the median value in
2000 of $144,800. Most housing in Elk River is
valued in the range of $200,000 to $299,999. In
comparison to low and moderate valued housing,
there is a relatively small choice of higher valued
housing units in Elk River. The median value of
owner-occupied housing in Sherburne County
was $200,100 and $201,400 in the State of
Minnesota. Refer to Table 7-E: Owner-Occupied
Housing by Value -2010 for additional information.
Table 7-D: Vacant Housing by Type - 2010
YearCity
Vacant
Units
City
Percent
Vacant
County
Percent
Vacant
State
Percent
Vacant
2000 1182.0%5.5%8.3%
2010 4625.4%6.7%10.5%
Source: 2007-2011 American Community Survey 5-Year
Estimates
Table 7-E: Owner-Occupied
Housing by Value - 2010
ValueUnits*PercentSherburne
County
State
Less than
$50,000
1001.6%2.7%5.6%
$50,000 to
$99,999
2624.1%3.8%9.2%
$100,000 to
$149,999
64710.0%14.0%14.3%
$150,000 to
$199,999
1,57824.5%29.5%20.4%
$200,000 to
$299,999
2,28235.4%32.4%27.5%
$300,000 to
$499,999
1,43022.2%15.7%16.5%
$500,000 to
$999,999
1282.0%1.8%5.5%
$1,000,000 or
More
230.4%0.2%1.0%
Median Value 225,400x$200,100$201,400
Total 6,450100%100%100%
Source: U.S. Census Bureau, 2007-2011 American
Community Survey
*Owner occupied units
Chapter 7: Housing / 73
Elk River Comprehensive Plan
Table 7-F: Owner Monthly Costs as Percent of
Household Income - 2010
Percent of
Household
Income
UnitsPercent Sherburne
County
State
Less than 20%1,46127.9%29.5%35.1%
20.0 to 24.9%98918.9%18.4%17.7%
25.0 to 29.9%71913.7%14.6%13.6%
30.0 to 34.9%5059.7%9.8%9.3%
35.0% or More 1,55629.8%27.7%24.3%
Not Computed ----
Total 5,230100%100%100%
Source: U.S. Census Bureau, 2007-2011 American
Community Survey
*Housing Units with a Mortgage
Table 7-G: Owner Monthly Costs as Percent of
Household Income - 2010
Monthly RentUnitsPercent Sherburne
County
State
Less than $200 724.7%5.2%3.1%
$200 to $299 00.0%2.6%5.1%
$300 to $499 825.4%6.2%10.6%
$500 to $749 38325.1%24.3%27.1%
$750 to $999 62140.7%32.6%26.5%
$1000 to $1,499 20413.4%21.6%19.9%
$1,500 or more 16410.7%7.5%7.7%
No Rent Paid 47---
Median Rent Paid$795-$813$783
Total 5,230100%100%100%
Source: U.S. Census Bureau, 2007-2011 American
Community Survey
Owner Monthly Costs as Percentage of Household
Income
Housing decisions should not be based solely on the value
of housing, but also the cost of housing expenses in
relation to household income. In general, housing costs
(taxes, insurance, principal, interest, etc.) should not
exceed 30% of total household income. In 2010, 39.5%
of homeowners in Elk River had monthly costs that were
30% or more of their household income, compared to
37.5% in Sherburne County and 33.6% in the State of
Minnesota. Refer to Table: 7-F: Owner Monthly Costs
as Percent of Household Income -2010. These fi gures
suggest that housing was less affordable in Elk River than
in Sherburne County and the State of Minnesota in 2010.
They also suggest that about two out of fi ve homeowners
in Elk River may fi nd it diffi cult to make their mortgage
payments. Consequently, some may default on their loans
and others may fi nd it diffi cult to keep up with household
maintenance and repairs.
Contract Rent
In 2010, rental housing units accounted for 19.61% of the
occupied housing units in Elk River. 78.8% of the renter-
occupied units had a monthly rent of $500 or more in
2000. In 2010, about 89.9% of units had a monthly rent
of $500 or more, which is higher than Sherburne County
(86.0%), and the State of Minnesota (81.2%) average.
Refer to Table 7-G: Renter-Occupied Housing Units by
Gross Rent – 2010, for additional information.
74 / Chapter 7: Housing
Elk River Comprehensive Plan
Table 7-H: Gross Rent as Percent of Household
Income - 2010
Percent of
Household
Income
UnitsPercent Sherburne
County
State
Less than 15%1449.4%10.4%12.0%
15.0 to 19.9%33622.0%14.0%12.5%
20.0 to 24.9%24115.8%12.1%13.5%
25.0 to 29.9%18412.1%11.7%12.6%
30.0 to 34.9%986.4%8.7%9.5%
35.0% or More 52334.3%43.0%39.9%
Not Computed 47---
Total Specifi ed
Units
1,573100%100%100%
Source: U.S. Census Bureau, 2007-2011 American
Community Survey
Table 7-I: Owner Monthly Costs as Percent of
Household Income - 2010
Year
Structure
Built
UnitsPercent Sherburne
County
State
2005 or later 7729%7.4%4.4%
2000 to 2004 1,80221%21.0%9.3%
1990 to 1999 1,85022%25.7%13.5%
1980 to 1989 1,94123%16.6%12.9%
1970 to 1979 1,02212%13.8%16.0%
1960 to 1969 3594%4.7%10.0%
1950 to 1959 2183%3.8%10.6%
1940 to 1949 1251%1.9%5.0%
1939 or Earlier3784%5.1%18.1%
Total Specifi ed
Units
8,467100%100%100%
Source: U.S. Census Bureau; 2007-2011 American
Community Survey
Renter Monthly Costs as Percentage of Household
Income
In 2010, 40.7% of renters paid over 30% of their
household income in rent. Refer to Table 7-H: Gross Rent
as Percent of Household Income - 2010. This number is
lower than Sherburne County (51.7%) and the State of
Minnesota (49.4%).
Age and Maintenance of Housing Stock
In 2010, roughly 24% (2,102 units) of the City’s units
were constructed before 1980. Just 4% of the housing
units in Elk River were built before 1939. The number of
new housing units built in Elk River is generally consistent
with the County but higher than the State, with 52%
of housing units being built since 1990 compared with
54.1% for the County and 27.2% for the State. Refer to
Table 7-I: Owner Monthly Costs as Percent of Household
Income-2010 for additional information.
Chapter 7: Housing / 75
Elk River Comprehensive Plan
Table 7-J: Building Permit Trends 2000 to 2012
Year Single-Family
(Units)
Multifamily
(Units)
Total
(Units)
2000-20092,499952,659
201015015
201110010
201236036
2,560952,720
Source: City of Elk River, WSB & Associates, Inc.
Residential Construction
2,659 new housing units were added in Elk River over the
last decade (2000-2009). This includes 160 multifamily
units and 2,499 single family homes.
Single family home construction averaged about 250 homes
per year during the past decade (2000-2009). The fi rst
three years of this decade (2010-2012) have averaged
much lower numbers at 20 homes per year, which is
attributed in part to the economic recession. Single-family
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
2000-2012 for additional information.
19961997199819992000200120022003200420052006200720082009201020112012
BuildingPermits 2352202262042561982525425463442501132420151036
0
100
200
300
400
500
600
Nu
m
b
e
r
of
Pe
r
m
i
t
s
g
Source: City of Elk River
Building Permits 1996-2012
76 / Chapter 7: Housing
Elk River Comprehensive Plan
Household Tenure by Age of Householder
City of Elk River 2010
Plumbing, Kitchen, and Telephone
The U.S. Census identifi ed 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 fl exibility in housing situations, young households typically fi nd renting
as the preferred housing option. Increased burdens of home maintenance can make rental housing a desirable
alternative for seniors.
The homeownership rate fl uctuated 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.
0%
20%
40%
60%
80%
100%
120%
0
20
40
60
80
100
120
140
15Ͳ2425Ͳ3435Ͳ4445Ͳ5455Ͳ6465Ͳ7475+
Ow
n
e
r
s
h
i
p
Pe
r
c
e
n
t
a
g
e
Nu
m
b
e
r
of
Un
i
t
s
AgeofCohort
y
RenterHHs
OwnerHHs
OwnershipRate
Source: U.S. Census Bureau; WSB & Associates, Inc.
Chapter 7: Housing / 77
Elk River Comprehensive Plan
Table 7-K: Household Tenure by Age of Householder - 2010
Elk RiverSherburne CountyMinnesota
NumberPercent*NumberPercent*NumberPercent*
Owner HHs
15-24 710.93231.1%21,3391.0%
25-34 1,09913.74,29514.5%203,1889.7%
35-44 1,65020.66,33621.4%295,58614.1%
45-54 1,33816.75,93720.1%379,20018.1%
55-64 1,23515.44,18214.1%307,85814.7%
65-74 7138.92,0627.0%181,5028.7%
75+3444.31,3064.4%153,6977.3%
Total Owner HHs 6,45080.424,44182.6%1,542,37073.6%
Renter HHs
15-24 2102.68532.9%86,2694.1%
25-34 4105.11,3314.5%151,0477.2%
35-44 3354.29913.4%89,6844.3%
45-54 2423.06962.4%78,1693.7%
55-64 1231.53571.2%52,6022.5%
65-74 911.13081.0%30,5131.5%
75+1622.05952.0%63,6113.0%
Total Renter HHs1,57319.65,13117.4%551,89526.4%
Total HHs
15-242813.51,1764.0%107,6085.1%
25-341,50918.85,62619.0%354,23516.9%
35-441,98524.77,32724.8%385,27018.4%
45-541,58019.76,63322.4%457,36921.8%
55-641,35816.94,53915.3%360,46017.2%
65-7480410.02,3708.0%212,01510.1%
75+5066.31,9016.4%217,30810.4%
Total Households 8,023100.0%29,572100.0%2,094,265100.0%
Source: U.S. Census Bureau; 2007-2011 American
Community Survey
78 / Chapter 7: Housing
Elk River Comprehensive Plan
Entry-Level Households
People in the 18 to 24 year old
age group typically leave their
childhood home and establish their
own household. They often rent a
house or an apartment because they
generally do not have the income
and savings needed to buy a home.
In addition, many people in this age
group move frequently, so they
are hesitant to buy a house. They
are also more apt to share housing with other
unrelated people of similar age.
The entry-level household population in Elk River
will fl uctuate annually. Many Elk River residents
that graduate from high school move to other
communities to attend a university or to pursue
job opportunities. In the long term, unless current
conditions and trends change, Elk River will not
see an increase in the 15 to 24 year old age
group, rather a signifi cant decrease in that sector.
Nevertheless, there will always be a strong need to
provide affordable housing for people of all ages.
First Time Homeowners
First time homeowners are typically in their 20s
and 30s. They are usually “move-up” renters,
meaning they “move up” from an apartment to a
home. They are often young families, or single
individuals. They are prone to moving within
several years of buying their fi rst home for several
reasons including increased fi nancial resources
allowing them to move to more expensive
housing, children may require larger housing, and
job opportunities may require that they move to
another community.
Move-Up Buyers
Move-up buyers are typically in their 30s and 40s.
They move up from the smaller, less expensive house
that they had purchased earlier. From an economic
growth perspective, this is an important age group
of people. Typically, move-up buyers have children
in school and an established job. They are less apt
to move to another community and start over. Also,
professionals who are moving to a community to
advance their career are generally looking to move
to a more expensive house than what they had in
their previous community. Elk River must continue
to ensure that it has adequate choices for those who
are looking for move-up housing that will satisfy their
needs until they are in their late 50s and beyond.
Long term, the move-up buyers represent the largest
age demographic. The variety of move-up housing
options will be important to these groups.
Empty Nesters
Empty nesters are generally in
their 50s and 60s. Often, their
children have moved out of
their house and left them with
a larger house than needed.
Empty nesters often want to
live in a smaller house, like
a townhouse, that has less
maintenance. This type of
smaller house is located within the community. Empty
nesters wish to maintain the friend, family, service
and recreational connections established over the
previous decades.
As the baby boom generation moves into this age
group, this population will likely increase in Elk River.
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.
Life-Cycle Housing and Profi le of Households
The housing needs of a community relate to the demographic profi le of the household. Typically,
households move through several life-cycle stages including entry-level households, fi rst 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.
Chapter 7: Housing / 79
Elk River Comprehensive Plan
Seniors
Those in their 80s and older
are often looking for low
maintenance or assisted
living housing. Elk Ridge
Manor provides apartment
and townhome living with
24-hour maintenance and
on-site management with
opportunities for aging seniors.
Guardian Angels also provides
a continuum of services for seniors including assisted
living, long and short term care, hospice, and senior
housing options in Elk River. As the population ages,
Elk River must continually ensure that it has adequate
housing to meet the needs of seniors.
The number of empty nesters and seniors, coupled
with their increasing level of activity, will drive
housing, transportation, recreational and service
needs into the next 30 years. Elk River should
strive to be a senior-friendly community that values
the contributions of seniors, promotes positive
intergenerational interactions, considers the needs of
seniors in community planning, supports the efforts of
seniors to live independently, and acknowledges the
role that family, friends, and neighbors play in the life
of seniors.
Special Needs
Housing for those with special
needs includes housing for those
with mental and/or physical
disabilities or health issues
and those who are in need
of temporary or transitional
housing. The number of people with special housing
needs is expected to increase as the population of Elk
River continues to age.
Affordable Housing
Affordable housing is important to a strong economy
and a healthy community. Increasingly, housing is not
affordable for many working families and the lack of
affordable housing for people of all ages and incomes
causes families stress, dampens productivity and stifl es
job growth. Various organizations defi ne “affordable
housing” in many different ways. The United States
Department of Housing and Urban Development (HUD)
generally defi nes housing as affordable if it costs less than
thirty (30) percent of a household’s income. However,
HUD’s Section 8 Income Guidelines are the basis for most
affordable housing programs. Section 8 guidelines defi ne
low and moderate incomes on a sliding scale, depending
on the number of persons in the family. For example, a
four person household is considered “moderate income”
if their family income is eighty (80) percent of the area’s
median family income.
It is noted most housing affordability programs and data
place emphasis on creating owner occupied units at eighty
(80) percent of the median family income (moderate
income) and rental units at fi fty (50) percent of the median
family income (low income). Since low income persons are
typically renters, the defi nition of “low income” is tied to
the number of persons in each unit. As of spring of 2013
this study identifi es “affordable owner occupied units”
as those affordable for moderate income families (eighty
(80) percent of median income). Affordable rental units
are based on fi fty (50) percent of the median income and
refl ected on a per capita and per family basis.
Further housing analysis is desired to determine future
housing demands and needs in Elk River.
It’s very important to note that the defi nition used in
this Study of “affordable” in terms of a dollar amount
will continue to change as the cost of living increases
and interest rates change. Therefore, the City should
periodically review income/housing statistics and update
the defi nition as warranted. Factors such as interest rates
will impact housing affordability.
80 / Chapter 7: Housing
Elk River Comprehensive Plan
Table 7-L: Household Income by Age of Householder -
2011
Under 2525-4445-6465+
Income No.Pct.No.Pct.No.Pct.No.Pct.
Less than
$10,000
00%00%301%423%
$10,000 to
$14,999
198%1304%341%1189%
$15,000 to
$24,999
187%2829%1896%19014%
$25,000 to
$34,999
3112%1214%532%31523%
$35,000 to
$49,999
4719%42313%2899%25119%
$50,000 to
$74,999
11646%63720%87227%17713%
$75,000 to
$99,999
00%89127%48515%14211%
$100,000 to
$149,999
218%53617%88927%786%
$150,000 to
$199,999
00%1264%2799%212%
$200,000 or
More
00%973%1184%111%
TOTAL HHs 252100%3,243100%3,238100%1,345100%
Income by Age of Householder
Looking at income data is also important when
predicting future housing demands in the City
of Elk River. In 2000, the median household
income was $58,114 and the largest employment
industries were educational, health and social
services, manufacturing, and retail trade. By
2011, the median household income increased
signifi cantly to approximately $70,224 and the
top employment industries were the same. The
total population in 2010 age 16 and over was
approximately 16,705, of which approximately
75.6% were considered to be in the labor force.
The unemployment rate in the City of Elk River
in 2010 was approximately 5.5%. During this
same time, Minnesota had an unemployment rate
of about 4.9%. Refer to Table 7-L: Household
Income by Age of Householder-2011.
Table 7-M: Elk River Median Family
Income
Annual Household Income Number of
Households in
Category
Pct.
Less than $10,000 1252.1%
$10,000 to $14,999 1222.1%
$15,000 to $24,999 2604.4%
$25,000 to $34,999 2904.9%
$35,000 to $49,999 60410.2%
$50,000 to $74,999 1,14519.3%
$75,000 to $99,999 1,23520.8%
$100,000 to $149,999 1,50225.3%
$150,000 to $199,999 4918.3%
$200,000 or More1722.9%
TOTAL HHs 5,946100.0%
Source: U.S. Census Bureau (2007-2011
American Community Survey)
Income distributions as reported by the U.S. Census Bureau can
be compared to affordability standards to determine how many
households and families in the City of Elk River may require
affordable housing. Table 7-M: Median Family Income depicts the
number of households that may require affordable housing (based
on family income) as shown in the shaded area. 1,401 households
(23.6%) have median family incomes of less than 80% of the
median family income.
Source: U.S. Census Bureau (2007-2011 American Community
Survey)
Chapter 7: Housing / 81
Elk River Comprehensive Plan
Sustainable Neighborhoods
The future role of the City in neighborhood
preservation can be diminished by quality planning,
design, and construction. Some guidelines for
designing sustainable and livable neighborhoods
include, but are not limited to:
·New housing development should be consistent
with the style and type of housing in the
surrounding neighborhoods.
·Subdivision design, standards for public
improvements, layout of public parks, and
orientation to the natural environment are
important factors in defi ning place.
·Street design and use of pedestrian trails and
sidewalks can be used to promote a greater degree
of connection between neighborhoods.
·Good transportation planning and related capital
investment help to minimize traffi c on local streets.
Seeking these qualities in initial design and
development should help to promote strong
neighborhoods and minimize future maintenance
issues that require public solutions.
Homeowner’s Associations
·Homeowner’s associations will play an increasingly
important role in neighborhood sustainability. A
homeowner’s association is responsible for the
maintenance of all common property in townhome
developments. An association is also established
to operate and maintain the shared septic system
in cluster subdivisions. Elk River will continue to
see growth in both of these areas.
·The public policy implications of homeowner’s
associations lies with long-term fi nancial viability.
If associations do not implement plans for future
capital replacement, then the City may face
involvement in alternative solutions. Homeowner’s
typically demand and pay for current maintenance
services. The ability to fi nance long-term,
replacement improvements is more diffi cult. In
townhome neighborhoods, an association is
responsible for the eventual replacement of private
streets, roofs, and exteriors. The sewer system
is the primary fi nancial obligation for a cluster
neighborhood.
·A well run association employs a dues structure
that builds a replacement reserve. Without
adequate reserves, an association may not be
able to undertake needed capital improvements in
future years. Failure to reinvest in the common
property leads to a deterioration of these
neighborhoods. With cluster subdivisions, the lack
of funding may have environmental consequences.
Neighborhood Preservation
Creating and maintaining strong neighborhoods is a key
ingredient of the vision for Elk River. Neighborhood issues
take several forms in context of the Comprehensive Plan.
82 / Chapter 7: Housing
Elk River Comprehensive Plan
Maintaining Neighborhoods
·Existing neighborhoods, particularly older ones, are an
important part of the fabric of the community. These
neighborhoods defi ne the character and the heritage
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.
·There are several aspects of maintaining
neighborhoods. One of the desired by-products of
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
other approaches are more diffi cult when maintenance
is not important to the property owner.
·Economics is part of the maintenance equation. As
more income is required simply to obtain housing, less
funds are available to pay for maintenance activities.
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 fi nance 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 fi ll 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 specifi c types of housing.
·Gaps are also linked to mortgage fi nancing 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
fi x the problem, the market avoids the unit. If unchecked, blight may spread to adjacent properties.
Chapter 7: Housing / 83
Elk River Comprehensive Plan
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:
Public participation in activities intended to meet the purposes of sections 469.001 to 469.047
and the exercise of powers confi ned 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:
·To provide a suffi cient supply to adequate,
safe, and sanitary dwellings in order to
protect the health, safety, morals, and
welfare of the citizens of the state;
·To clear and redevelop blighted areas;
·To perform those duties according to
comprehensive plans;
·To remedy the shortage of housing for
low and moderate income residents, and
to redevelop blighted areas in situations
in which private enterprise would not
act without government participation or
subsidies; and
·Central Minnesota Housing Partnership
Programs. The Central Minnesota Housing
Partnership helps to maintain affordable
housing through a variety of acquisition and
rehabilitation programs including the Home
Stretch, First Time Homebuyer Program, The
Central Minnesota Community Land Trust,
Acquisition/Rehabilitation Program, Small
Cities Development Program and Rental
Rehab Deferred Loan Pilot Program (RRDL).
·Minnesota Housing. The mission of
Minnesota Housing is to fi nance and
advance affordable housing opportunities
for lower and moderate income
Minnesotans. Minnesota Housing can
help fi nance new affordable housing
opportunities and preserve existing
affordable housing.
·Tri-Cap Home Repair Loan. The Home
Repair Loan provides homeowners resources
to make repairs to their homes. These loan
funds may be used to make homes more
livable, accessible and energy effi cient.
·Tri-Cap Family Homeless Prevention
and Assistance Programs. These funds
are available to families or singles that
are homeless or are at imminent risk of
homelessness, or living in shelters to
stabilize their lives by providing services
such as budget counseling, assisting with
damage deposits or fi rst month’s rent.
·MN Center for Energy & Environment
Programs. Elk River is an Energy City
with ample opportunities and tips
for homeowners looking to reduce
consumption, save money, and rehabilitate
their homes in the process. Programs
available through MN Center for Energy
& Environment include the Home Energy
Program, Fix-Up Fund Program, and Save $
Now Program.
·Not-for Profi t Organizations. Not-for profi t
organizations including, but not limited to,
Habitat for Humanity can help Elk River
address its housing needs.
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 effi ciency.
84 / Chapter 7: Housing
Elk River Comprehensive Plan
·Revise the Zoning Ordinance as necessary to ensure
that any infi ll development or further subdivision
of large lots will not adversely affect the existing
character of the neighborhood.
·Study the possibility of allowing accessory dwelling
units in the City of Elk River to help promote affordable
housing and to help those who may need physical
assistance, including elderly residents.
·Ensure the City has adequate and appropriately zoned
land to meet the changing housing needs of the
community.
·Continue to monitor and enforce timely progress
related to residential building permits. Do not
allow building projects that have been started to go
unfi nished for an excessively long period.
·Study the need for, and if appropriate, implement a
residential rehabilitation program using state funding,
community development block grants (CDBGs), or
other suitable resources to provide rehabilitation loans
and grants for residents in need.
·Continue to monitor and enforce home occupation
ordinances in the city to ensure safe and healthy
neighborhood conditions.
·In accordance with the policies of this Comprehensive
Plan, coordinate the effective and cost effective
extension of municipal sewer and water to residential
areas that are not served by public utilities.
·To the maximum extent feasible, ensure the
preservation of existing natural features and promote
the sensitive integration of natural features, such
as wildlife corridors, into existing and proposed
development.
·Support neighborhoods in their efforts to beautify
their homes and neighborhoods.
·Identify and remove possible barriers in the zoning
ordinance and subdivision regulations that discourage
or prohibit the use of green building techniques and/or
renewable energy sources.
·Study opportunities to provide incentives that
encourage the use of green building techniques and
renewable energy sources, as appropriate. Incentives
may include expedited review time, reduction of
review fees, increased density, or administrative fl exibility
to grant minor variances (such as setback variances) that
would support green building techniques and renewable
energy sources.
·Review and modify ordinances as necessary to promote
building compatibility with the site. For example, strive to
ensure that development does not unnecessarily remove
mature trees or other desirable site features.
·Strive to identify, study, and map unique residential
neighborhoods in Elk River. To the extent feasible,
work with the neighborhoods to identify the qualities
of the neighborhood that they would like to see
preserved. As necessary, modify existing ordinances
or develop guidelines to ensure that future renovations
and development are consistent with the desired
neighborhood character.
·Before applying for the necessary development approvals,
encourage the developer or landowner to conduct a
neighborhood meeting to review proposed development,
redevelopment, or renovations that my impact the
neighborhood character. Offer meeting space at City Hall
or other community facilities as a means to support this
effort.
·Where guided in the Land Use Plan, promote the
redevelopment of existing vacant or underutilized
commercial property to include moderate to high density
residential housing. In particular, promote mixed
commercial and moderate to high density housing in
the downtown area and near future transit hubs in the
City. Ensure that housing is consistent with the desirable
character of the area.
·Promote fl exible development standards and innovative
development techniques hat encourage development,
redevelopment, and renovation of existing housing without
jeopardizing the desirable character of the area.
·Study the feasibility and desirability of allowing multiple
types of housing units in existing neighborhoods that
are currently restricted to single family dwellings. For
example, explore the possibility of allowing outright, or as
a conditional use, duplexes and/or twin homes in single
family districts.
·Conduct a housing market study based on the City’s
goals and future needs.
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:
Chapter 8: Utilities / 85
Elk River Comprehensive Plan
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
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
effi cient 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 defi nes the parameters
for municipal utilities needed to support this new development.
Alternatively, the limitations of the utility system infl uence the type,
form and location of future development.
Ch
a
p
t
e
r
8
:
U
t
i
l
i
t
i
e
s
86 / Chapter 8: Utilities
Elk River Comprehensive Plan
The utility system represents signifi cant public investment and as
such, continued coordination between community development and
utilities is essential to make the best use of fi nancial resources. The
City must determine the appropriate timing for any public fi nancing
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 effi ciency 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 suffi cient 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.
Chapter 8: Utilities / 87
Elk River Comprehensive Plan
Chapter 8: Utilities / 87
N
Figure 8-1. Urban Service Area
)m
)m
+¡
+¡
G`WX
G¥WX
Sv
Sy
S¥
GkWX
GlWX
G¥WX
G`WX S¡
Sì
StG¢WX
Sw
Sx
G¥WX
SÎ
Legend
Urban Service Area
City Limits
Parcels
Lakes
0120.5
Miles
010.5
88 / Chapter 8: Utilities
Elk River Comprehensive Plan
88 / Chapter 8: Utilities
Figure 8-2. Future Development Within the Urban Service Area
N
)m
)m
+¡
+¡
G`WX
G¥WX
Sv
Sy
S¥
GkWX
GlWX
G¥WX
G`WX S¡
Sì
StG¢WX
Sw
Sx
G¥WX
SÎ
73.72
ac
633.82
ac
39.7
ac
39.89
ac
16.56
ac
37.54
ac
51.55
ac
30.28
ac
175.61
ac
24.78
ac 57.84
ac
140.72
ac
39.82
ac
25.65
ac17.66
ac
59.78
ac
237.56
ac
20.03
ac
9.12
ac
12.28
ac
32.12
ac
11.14
ac
Legend
Urban Service Area
Future Development Inside Urban Service Area
City Limits
Parcels
Lakes
0120.5
Miles
Chapter 8: Utilities / 89
Elk River Comprehensive Plan
Chapter 8: Utilities / 89
Figure 8-3. Future Expansion of the Urban Service Area
N
)m
)m
+¡
+¡
G`WX
G¥WX
Sv
Sy
S¥
GkWX
GlWX
G¥WX
G`WX S¡
Sì
StG¢WX
Sw
Sx
G¥WX
SÎ
260.08
ac
92.28
ac 146.85
ac
1409.25 ac
776.96 ac
428.87
ac
Legend
Urban Service Area
20 Years
Beyond 20 Yrs
City Limits
Parcels
Lakes
0120.5
Miles
90 / Chapter 8: Utilities
Elk River Comprehensive Plan
Great River Energy plant and has been in operation
since 1977 with several upgrades since. Wastewater
improvements since 2004 include upgrades to the
wastewater treatment facility in 2005, sand fi lter
upgrades in 2006, and upgrades to various lift
stations every year.
In February 2013, a Wastewater Treatment Facility
Plan was completed to evaluate the capacity of the
existing facility and the ability to reliably achieve
the reduced effl uent limits at design fl ows and loads
and to develop a plan for future plant modifi cations.
As improvements to the facility are presented, the
City should follow the recommendations of the
Wastewater Treatment Facility Plan.
The current plant has a maximum treatment capacity
of approximately 2,200,000 gallons per day. On June
23, 2012 the highest daily fl ow was recorded at
1,930,000 gallons. Table 8-A: Wastewater Treatment
Facility Average Daily Flows 2006-2012 shows the
changes in annual daily fl ow since 2006.
Inventory and Analysis
Sanitary Sewer
Elk River’s desired future land use pattern must be
tied closely with a cost-effective wastewater service
strategy. The City must be certain in determining the
pattern of sanitary sewer interceptors, lift stations,
and force mains to complete its development pattern.
Moreover, the City must ensure that costs of these
improvements are equitably distributed and services
are provided in a planned, phased sequence that
promotes development.
The sanitary sewer collection system in the City of
Elk River includes over 77 miles of lines. As a result,
21 lift stations are needed to transport sewage to
a wastewater treatment facility that the City of Elk
River owns and operates that serves the residents of
Elk River as well as commercial and industrial users
located within the community. The plant is located
between Highway 169 and the rail line, north of the
Table 8-A: Wastewater Treatment Facility Average Daily Flows 2006-2012
2006200720082009201020112012
Gallons 1,142,4281,183,2941,211,1201,243,0781,188,9851,193,9801,171,000
1,080,000
1,100,000
1,120,000
1,140,000
1,160,000
1,180,000
1,200,000
1,220,000
1,240,000
1,260,000
An
n
u
a
l
D
a
i
l
y
F
l
o
w
(
G
a
l
l
o
n
s
)
Chapter 8: Utilities / 91
Elk River Comprehensive Plan
ERMU’s water system contains over 78 miles of
water mains and 4 water towers that have a total
capacity of approximately 4,000,000 gallons of
water. Peak day water pumped in 2012 was on July
16th with 4,420,000 gallons and 2012 water sales
were 727,912,000 gallons.
System improvements undertaken by ERMU since
2004 include: added 3 miles of main, changed
over 4,000 meters to automated meter reading,
completed a 20 year wellhead protection plan, and
modifi ed pressure zones in the City to optimize
existing pressure by installing RPZ valves. ERMU
also installed additional well fi lter equipment to better
serve the long term growth of the City.
Water effi ciency and conservation efforts have been
increased as the concern for the longevity of the
aquifers in the state. The water utility implemented
a rebate program to promote the installation of Smart
Irrigation Controllers, implemented tiered pricing
structures to promote water effi ciency, and provided
rebates and rate schedules for customers that
irrigate using the most effi cient equipment available.
There are also programs for smaller customers that
promote rain gardens and water barrels for residential
customers. These efforts support the long term
growth of the City and water supply.
The size and location of the sanitary sewer collection system infl uences 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 identifi ed in Figure 5-1: Existing Land Use is a critical area.
Projected areas of development and fl ow from un-sewered connections from the Wastewater Treatment Facility Plan
were used to estimate the average daily fl ow (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 fl ows will be monitored by the City and Treatment Facility improvements will be
completed as fl ows increase.
Water System
A key element of this section of the Plan is to ensure
that the City of Elk River provides a safe and adequate
water supply. A suffi cient water supply is a fundamental
prerequisite for community growth and sustainability.
Obtaining, protecting and distributing drinking water that
meets health standards is one of the most important
functions performed by a community. In addition, water
pressures must be maintained for health, convenience,
and to meet multiple and simultaneous demands by local
residents.
It is important to also maintain adequate water pressure
and supply for fi re protection. The City must maintain
and expand its present system to ensure reliability and
meet increasing water demands and quality standards.
Strategic improvements to support desirable growth
patterns will be critical as well.
ERMU operates the water system for the City of Elk River
and has done so since its creation on October 4, 1945 by
the City Council. Water is supplied from 8 wells ranging
from 225 to 406 feet in depth with water drawn from the
Mr. Simon Hinckley aquifer. The wells range in capacity
from 650 to 1,300 gallons per minute (gpm). The water
utility is positioned well for the long term growth with the
capability of providing over 8 million gallons of water per
day to local residents and businesses.
92 / Chapter 8: Utilities
Elk River Comprehensive Plan
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 refl ect 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
a measure of the average availability of the
sub-transmission and distribution systems to
serve customers. It is the ratio of the total
customer minutes that service was available
to the total customer minutes available in
a time period. This is normally expressed
as a percentage. ERMU’s 2012 ASAI is
99.999% Availability.
2. CAIDI (customer average interruption
duration index) is defi ned as the average
length of an interruption weighted by
the number of customers affected. It
is calculated by summing the customer
minutes off during each interruption in the
time period and dividing this by the number
of customers experiencing one or more
sustained interruptions during the time
period. The resulting unit is minutes. The
index enables utilities to report the average
duration of a customer outage for those
customers affected. ERMU’s 2012 CAIDI is
66 minutes.
3. SAIDI (system average interruption duration
index) is defi ned as the average interruption
duration for customers served during a specifi ed
time period. It is determined by summing the
customer minutes off for each interruption
during a specifi ed time period and dividing
that sum by the average number of customers
served during that period. The unit is minutes.
This index enables the utility to report how
many minutes’ customers would have been out
of service if all customers were out at one time.
ERMU’s 2012 SAIDI is 7.7 minutes.
4. SAIFI (system average interruption frequency
index) is defi ned as the average number of
times that a customer is interrupted during
a specifi ed time period. It is determined
by dividing the total number of customers
interrupted in a time period by the average
number of customers served. The resulting unit
is “interruptions per customer.” ERMU’s 2012
SAIFI is 0.117.
Chapter 8: Utilities / 93
Elk River Comprehensive Plan
In 2012, the electrical peak demand was at 59,620
kW with the annual energy sales of 273,455,846
kWh. The Landfi ll gas generation facility contributes
approximately 26 million kilowatt hours, or 9% of the
City’s needs.
ERMU will need to add electric substations and
modify or improve some of the existing substations
as development occurs.
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 fl ooding.
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.
Table 8-C: Electric Generation Units
Unit
No.
Capacity
(kw)
HorsepowerDate
Installed
Fuel
1550735 1947 Diesel Fuel
2550735 1947 Diesel Fuel
33,0004,100 1961 Diesel Fuel
& gas
45,0006,911 1971 Diesel Fuel
& gas
Landfill3,2004,600 2002 &
2006
Landfi ll Gas
Table 8-C: Electric Generation Units
94 / Chapter 8: Utilities
Elk River Comprehensive Plan
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.
Chapter 9: Environmental Resources / 95
Elk River Comprehensive Plan
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.
Ch
a
p
t
e
r
9
:
E
n
v
i
r
o
n
m
e
n
t
a
l
R
e
s
o
u
r
c
e
s
96 / Chapter 9: Environmental Resources
Elk River Comprehensive Plan
·Undertake a more detailed greenway corridor
planning process within the City (NRI plan). The
purpose of this would be to identify goals of
the greenways within the City, identify where
public ownership could be incorporated into the
greenway, incorporate the trails system, identify
areas where ecological restoration may be feasible,
consider opportunities for recreation and pedestrian
movement, and target projects for grant funding.
Some of this will occur with the update to the
Parks System Plan that is currently underway, but
should be expanded upon to ensure preservation
and enhancement of these corridors is sustained.
·Continue to enforce all environmental protection
zoning standards related to restrictive soils,
woodlands, wetland, fl oodplains, shorelands,
bluffs, steep slopes and erosion control, to
preserve and protect sensitive and other natural
areas of community importance. One key part
of this will be to update/review ordinances per
NRI recommendations to review park dedication
requirements, data that is required for preliminary
platting, tree preservation.
·Include the city-owned natural areas recommended
for management into the City’s CIP. This will
allow the city to explore and potentially be eligible
for grant funds.
·Invasive species can negatively impact native
habitats within the City. The City will work to
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.
·Manage the community’s wildlife resources to
protect and preserve native habitat and wildlife,
and to protect human safety.
·Work with and encourage projects designed to
reclaim contaminated lands and restore natural
resources where appropriate.
·Continue programs to regulate the use of private
individual sewage treatment systems per County
and State requirements and to protect ground and
surface water within Elk River.
·Continue monitoring and regulation of quarrying
of resources such as sand, dirt, and gravel to
mitigate potential visual and environmental
impacts such as noise, erosion and dust.
·Continue to manage the impacts of land uses
such as aggregate mining, landfi lls, and others on
the environment by collecting appropriate fees or
other funds to mitigate the impacts of the use on
the community’s infrastructure.
·Continue and expand environmental education
and awareness programs to include the proper use
and disposal of such pollutants such as hazardous
waste, pesticides, non-point source pollutants, and
fertilizers. Encourage public and private recycling
and source reduction programs.
·Promote the effi cient use of land to encourage the
protection of natural and energy resources where
appropriate.
Implementation
The following statements refl ect specifi c parts of the City’s vision relating to natural environment and resources.
Chapter 9: Environmental Resources / 97
Elk River Comprehensive Plan
·Minnesota Land Cover Classifi cation System: As part
of the City’s Natural Resources Inventory project, the
existing land cover was mapped within the City using
the Minnesota Land Cover Classifi cation System
(MLCCS). This is a methodology standardized by
state agencies to classify land cover and identify
native plant communities.
·City of Elk River Natural Resources Inventory
(2004): The Elk River Natural Resources
Inventory is incorporated by reference into
the Comprehensive Plan. This report contains
background information on the landscape history
of Elk River as well as the results of the MLCCS
survey. This data is more accurate and up to date
than the County Biological Survey Data, although
it should be noted that not all areas within the
City granted property access to fi eld review the
land cover.
·Connection opportunities map: The map was
developed as part of the 2004 Comprehensive
Plan and provides information about potential
greenway connections.
·Natural Resource Inventory Conceptual
Greenways/Corridors Map: A greenway is
generally defi ned as a linear corridor 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.
·Gravel Resources: Elk River is rich in gravel
resources and gravel is an important natural
resource for the economy of Minnesota.
Existing Natural Resource Information
Natural resources can be defi ned as materials or substances such as gravel, forests, water, and land that occur in
nature and can be used for economic benefi t. This economic benefi t can be characterized as the benefi t 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 defi ning 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
by the US Fish and Wildlife Service that provides
general information about the location and type of
wetlands. The NWI information is shown in Figure 9-1.
·Department of Natural Resources (DNR) Public
Waters/Wetlands Inventory (PWI): The DNR has
jurisdiction over larger wetland and open water
waterbodies. These water bodies are also shown on
Figure 9-1.
·Land use inventory: The City’s land use inventory
provides guidance on proposed land uses for the
area.
·Floodplain Data: The Federal Emergency
Management Agency (FEMA) provides maps that
show the fl oodplain within a community. Generally,
development is not allowed or is restricted in these
areas. The fl oodplain is shown in Figure 9-2.
·Minnesota County Biological Survey Data (Sites
of Biodiversity Signifi cance): The DNR, through
the County Biological Survey, has identifi ed areas
with varying levels of native biodiversity that may
contain high quality native plant communities, rare
plants, rare animals, and/or animal aggregations.
A biodiversity signifi cance rank (outstanding, high,
moderate, or below) is assigned on the basis of the
number of rare species, the quality of the native plant
communities, size of the site, and context within
the landscape. MCBS Sites that are found to be
disturbed are given the Biodiversity Signifi cance rank
of “Below.” Figure 9-3 shows this information. The
rating code is based on the data provided by the DNR
at the time of the survey and may or may not still be
applicable.
98 / Chapter 9: Environmental Resources
Elk River Comprehensive Plan
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 defi ned 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 signifi cant 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.
Chapter 9: Environmental Resources / 99
Elk River Comprehensive Plan
Chapter 9: Environmental Resources / 99
N
Figure 9-1. National Wetland Inventory
)m
)m
+¡
+¡
G`WX
G¥WX
Sv
Sy
S¥
GkWX
GlWX
G¥WX
G`WX S¡
Sì
StG¢WX
Sw
Sx
G¥WX
SÎ
Trott
Brook
Mississippi
River
Elk
River
00.511.52
Miles
National Wetland Inventory Area
DNR Public Waters / Wetlands
Data Source: Minnesota Department of Natural Resources
100 / Chapter 9: Environmental Resources
Elk River Comprehensive Plan
100 / Chapter 9: Environmental Resources
Figure 9-2. Flood Plain Location
N
)m
)m
+¡
+¡
G`WX
G¥WX
Sv
Sy
S¥
GkWX
GlWX
G¥WX
G`WX S¡
Sì
StG¢WX
Sw
Sx
G¥WX
SÎ
Trott
Brook
Mississippi
River
Elk
River
00.511.52
Miles
Floodplain
DNR Public Waters / Wetlands
Data Source: Minnesota Department of Natural Resources
Chapter 9: Environmental Resources / 101
Elk River Comprehensive Plan
Chapter 9: Environmental Resources / 101
Figure 9-3. County Biological Survey
N
)m
)m
+¡
+¡
G`WX
G¥WX
Sv
Sy
S¥
GkWX
GlWX
G¥WX
G`WX S¡
Sì
StG¢WX
Sw
Sx
G¥WX
SÎ
Trott
Brook
Mississippi
River
Elk
River
00.511.52
Miles
Biodiversity Significance
Outstanding
High
Moderate
Below
DNR Public Waters / Wetlands
Data Source: Minnesota Department of Natural Resources
102 / Chapter 9: Environmental Resources /
Elk River Comprehensive Plan
This page intentionally left blank.
Chapter 10: Parks, Recreation, Trails, and Open Space / 103
Elk River Comprehensive Plan
Introduction
In the fall of 2013, the City began the process of developing a
Parks and Recreation Master Plan The fi nal document resulting
from that planning process should be incorporated by reference to
this section of the comprehensive plan.
Ch
a
p
t
e
r
1
0
:
P
a
r
k
s
,
R
e
c
r
e
a
t
i
o
n
,
T
r
a
i
l
s
,
a
n
d
O
p
e
n
S
p
a
c
e
104 / Chapter 10: Parks, Recreation, Trails, and Open Space
Elk River Comprehensive Plan
Personnel should be planned for, hired and trained
prior to the date of actual need to ensure that a
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.
Guiding Principle #3 - Plan and Design
Parks for Their Entire Lifecycle
An important consideration in implementing the
system plan is the expected “lifecycle” of each
component or park unit, which is the time frame
between when it is initially developed until it is
redeveloped or refurbished. In most cases, parks have
an effective “lifecycle” of 15 to 20 years, although
this will vary substantially depending on the specifi cs
of the park in question. In addition, recreation trends
and demand fl uctuate as some activites become more
or less popular or interest/demographics change. It
is important to plan for evolving recreation needs
by having fl exible recreation spaces/facilities where
feasible.
Guiding Principle #4 – Clarify Park
Roles and Classifi cations
The system plan uses and a variety of park
classifi cations to assure that the spectrum of
recreation needs are being served within the larger
system. The park classifi cations should follow
guidelines and criteria set by national planning
organizations to simplify and defi ne the roles
parks play and the services they provide. Those
national standards can be adapted to meet the
unique needs of Elk River. This will aid the City in
establishing long-term maintenance costs, community
expectations, and implementation. This principle
should be further defi ned by the Parks and Recreation
Master Plan.
Guiding Principle #5 - Foster
Community Involvement at Each Level
of System Planning and Implementation
Continuing community involvement in the decision-
making process as the plan is implemented is
fundamental to the City being successful in gaining
Guiding Principles
In early 2013, the Parks and Recreation staff prioritized
city services into the following three priorities:
·Maintenance – take care of what we have
·Preservation of open space
·Take care of our youth
These are viewed as core services which are defi ned as
the department’s basic civic duty and prime value to the
community. The forthcoming guiding principles support
these goals of providing a dynamic high quality system
that is well-positioned to meet the needs of current and
future residents of Elk River.
Guiding Principle #1 - Implement a
Balanced System Plan that Provides a
Consistent Level of Service within Each
Geographic Area of the City
As the City of Elk River continues to grow into the northern
area of the City, it will be important to provide residents
with a cross-section of recreational opportunities from
which to choose. It appears there are some overlapping
service areas within the existing park system. This indicates
there is potentially redundancy within the system and some
parks/recreation features may be unnecessary.
Guiding Principle # 2 – Maintain Adequate
Resources to Oversee Development,
Operations and Maintenance of Parks and
Trails and Administration of Recreational
Services
Elk River Comprehensive Plan
Park NameAcres Un
d
e
v
e
l
o
p
e
d
AD
A
A
c
c
e
s
s
i
b
l
e
F
e
a
t
u
r
e
Ad
j
a
c
e
n
t
t
o
W
a
t
e
r
Ba
s
e
b
a
l
l
Ba
s
k
e
t
b
a
l
l
Ba
s
k
e
t
b
a
l
l
1
/
2
C
o
u
r
t
Ba
t
t
i
n
g
C
a
g
e
Bi
a
t
h
l
o
n
R
a
n
g
e
Bi
r
d
W
a
t
c
h
i
n
g
Bo
a
r
d
w
a
l
k
Bo
a
t
L
a
n
d
i
n
g
Cl
i
m
b
i
n
g
F
e
a
t
u
r
e
Co
n
c
e
r
t
s
/
M
u
s
i
c
Co
n
c
e
s
s
i
o
n
s
Co
n
s
e
r
v
a
t
i
o
n
E
a
s
e
m
e
n
t
Di
s
c
G
o
l
f
Di
s
c
G
o
l
f
C
o
u
r
s
e
-
9
h
o
l
e
Do
g
W
a
s
t
e
S
t
a
t
i
o
n
Fi
s
h
i
n
g
Fi
s
h
i
n
g
P
i
e
r
Fo
o
t
b
a
l
l
Fo
u
r
S
q
u
a
r
e
Ga
z
e
b
o
Go
l
f
Gr
i
l
l
Alba Ridge Park20.00 ●
Babcock 6.00 ●●●
Bailey Point Nature Reserve24.38 ●●●●●
Baldwin Park0.94
Barrington Park0.97 ●
Big Tooth Ridge Park30.90 ●
Birch Meadow30.94 ●
Burr Oak Park25.90 ●
Camp Cozy Park48.36
Country Crossings Park2.99 ●
Dave Anderson Athletic Complex12.38 ●●
Deerfield Hill Park2.86 ●
Elk Hills Green Space 0.66 ●
Fresno Park1.06 ●
Great Northern Trail ●●
Harris Island Park12.25 ●●
Highlands Park (E&W)21.16 ●●
Hillside City Park79.62
Kliever Lake Fields7.96 ●●●
Kliever Marsh Park21.77 ●●
Kliever Pointe Park1.20 ●
Lions Park34.67 ●●●●●●
Meadow Park0.30
Meadowvale Heights Park75.71 ●●
Mississippi Oaks Park1.29 ●
North Terrace Park0.41 ●
Oak Knoll Athletic Complex10.71 ●●
Oak Savanna Park7.51
Orono Park33.82 ●●●●●●
Oxbow Park2.70 ●●
Pinewood Golf Course26.44 ●
Rice Lake Park27.27 ●
Ridgewood East Park4.95 ●
River Park4.74
Riverplace Park1.89 ●
Rivers Edge Commons0.63 ●●●
Royal Valley Park11.00 ●
Sedge Meadow Park25.23 ●
Trott Brook Farms Park11.54 ●●
West Oaks2.27 ●
Windsor Park12.06 ●
Woodland Trails Park340.40 ●●●●
Youth Athletic Complex95.24 ●●●●
Amenities by Park
106 / Chapter 10: Parks, Recreation, Trails, and Open Space
Elk River Comprehensive Plan
residents support for funding initiatives. An
ongoing commitment by the city leaders and staff
to community involvement in implementing the
system plan should remain a cornerstone of the
implementation strategy.
Guiding Principle #6 – Provide Access
to Recreational Activities and Programs
through Coordinated Services with Local
Partners
Working with local program providers, the City
will work to provide the opportunity for residents
to participate in recreation activities and programs
through well-designed, effective and cost effi cient
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
adequate facilities for programmed use on a fair and
equitable basis.
Framework for the Parks,
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
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:
1. Expansion of the trail system will provide
connections and continuity in the community.
2. Facility maintenance needs to be balanced with
available resources.
3. Consider City-wide and geographic service areas
within in the City when planning for parks.
4. Each geographic area will be anchored by a
place based brand to bring community together.
5. Continue to work with local agencies and
adjacent communities on meeting the recreation
facility needs.
6. Plan for and obtain space for future needs.
Chapter 10: Parks, Recreation, Trails, and Open Space / 107
Elk River Comprehensive Plan
Classifi cationGeneral Description
Neighborhood ParkNeighborhood 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
Complex
Consolidates programmed youth athletic fi elds and associated
facilities to fewer strategically located sites within the community.
Can also provide neighborhood-use functions.
Community Athletic
Complex
Consolidates programmed adult and youth athletic fi elds and
associated facilities to a limited number of sites. Tournament level
facilities. Can also provide neighborhood-use functions.
Conservancy AreaLands 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 fl oodplains and an assortment of outlots left
as open space
GreenwaysServe 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 UseCovers a broad range of parks and recreation facilities oriented
toward single-purpose use - such as a nature center, historic sites,
plazas, etc.
Regional/ County
Park/ Open Space
Regional parks and open spaces with a natural resource and larger
acreage focus.
Private Park/ Rec.
Facility
Parks and recreation facilities that are privately owned, yet
contribute to the public park and recreation system.
Park Classifi cations Guidelines
As per Guiding Principle #4 the system plan consists of a variety of parks and open spaces defi ned under various
classifi cations. Each classifi cation serves a particular purpose in meeting local park and recreation needs. Although
some fl exibility is warranted, classifying parks is necessary to ensure a well-balanced system and that all recreation
needs are effectively and effi ciently met.
The classifi cations 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 modifi ed to address circumstances unique to the city. The following table provides an
overview of each classifi cation.
108 / Chapter 10: Parks, Recreation, Trails, and Open Space
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 fi ll 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 Classifi cations
The trail system plan consists of a variety of trails
and pedestrian-ways/sidewalks defi ned under various
classifi cations. Each classifi cation helps translate the
aforementioned personal values and principles into an
implementable form, with each serving a particular
purpose in meeting local needs. The distinction between
classifi cations 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 classifi cations applied to Elk River should be
consistent with the MN DNR’s Trail Planning, Design,
and Development Guidelines (2007), albeit modifi ed to
accommodate some local nuances.
Chapter 10: Parks, Recreation, Trails, and Open Space / 109
Elk River Comprehensive Plan
Funding SourceDescription / OverviewProbability
State Outdoor
Recreation, LCCMR,
Legacy Fund, and
Similar Grants
The State of Minnesota annually allocates funds for park
acquisition and development projects which meet recreational
needs identifi ed by the State Comprehensive Outdoor Recreation
Plan. In recent years, Legacy Amendment Fund has emerged as
a legitimate potential funding source for projects of regional or
state-wide signifi cance. Whatever the program, the grants are
competitive and awarded according to project merits.
Very competitive, especially with very tight public
funding available at all levels. Most promising might be
Legacy Amendment Funds, especially for parks or trails
of regional signifi cance.
Land and Water
Conservation Fund
The federal government allocates monies each year to states
for public acquisition and development projects. The State of
Minnesota Administers these grants through the Department of
Natural Resources.
Funding availability through this program has been
limited in recent years.
Federal Transportation
Funds (T-21, RTP, etc.)
The federal government allocates monies each year for alternative
forms of transportation, which includes bicycle trails that focus on
transportation.
Funding availability through this program has been
signifi cant in past years. The potential for receiving
funding for local trails is relatively good.
Fees/Enterprise FundsMinnesota statute allows cities to prescribe and provide for the
collection of fees for the use of any city park or other unit of the
city park system or any facilities, accommodations, or services
provided for public use therein.
Becoming a much more relied upon funding source,
especially for singular use facilities ranging from
ballfi elds to hockey arenas.
PartnershipsRelates to partnerships formed with adjacent cities, the county,
and school districts to develop, maintain, and operate parks and
recreational facilities on a joint-use basis.
Although limited public funding availability is an issue
at all levels, forming partnerships to spread the cost of
providing a specifi c type of service or facility still has
merit whenever there is an opportunity.
Park Dedication FeesThe park dedication fund provides funding for parks as long as
community development continues to occur. Any controls imposed
on the extent (i.e., total number of units) or rate of development
(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.
Even with periodic adjustments, park dedication fees
alone will not be adequate to fund the system plan to an
optimal level.
DonationsDonations relates to cash donations, gifts, volunteerism, and
professional services donated to the park for planning, acquisition,
or development purposes.
Limited potential from a cash perspective, but important
with respect to the use of volunteers to offset some
program costs.
Local Sales Tax
Increase
A local sales tax is a special-purpose tax implemented and levied at
the city level. A local option sales tax is often used as a means of
raising funds for specifi c local or area projects, such as improving
parks and trail within the community.
As much as the sales tax approach offers high degree
of merit, it must be noted that enacting it requires
approval by the State Legislature following requirements
established by state statue. In an ever shifting political
environment, getting this approval is not always certainty.
Park and Trail Bond
Referendum
A Bond Referendum is a way to borrow money to fund capital
projects and it normally requires voter approval. Collection of the
money is carried out by taxing local property owners.
Although many communities have been successful
at passing bond referendums to fund park and trail
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.
110 / Chapter 10: Parks, Recreation, Trails, and Open Space /
Elk River Comprehensive Plan
This page intentionally left blank.
Chapter 11: Community Facilities / 111
Elk River Comprehensive Plan
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
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.
Ch
a
p
t
e
r
1
1
:
C
o
m
m
u
n
i
t
y
F
a
c
i
l
i
t
i
e
s
112 / Chapter 11: Community Facilities
Elk River Comprehensive Plan
Planning for community facilities is important for several reasons, including, but not limited to:
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 offi cials 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.
·Community facilities represent important
community services;
·In Elk River, community facilities often are
the locations of large employers;
·The facilities should be accessible to both
residents and visitors;
·These facilities often represent signifi cant
elements of community heritage and
identity;
·Community facilities may infl uence the
pattern of traffi c and adjacent land use;
·The future growth of Elk River may lead to
the expansion of existing facilities and the
need to build new facilities;
·Municipal buildings, libraries, schools,
religious institutions, health care and a
variety of other elements all form the
mosaic of what residents and businesses
want and need in the community;
·Residents and businesses place value
on the quality and variety of educational
opportunities available in Elk River. Schools
become focal points of the community.
Chapter 11: Community Facilities / 113
Elk River Comprehensive Plan
Elk River has several boards and commissions
including the Board of Adjustments, Economic
Development Authority, Energy City Commission,
Heritage Preservation Commission, Housing &
Redevelopment Authority, Ice Arena Commission,
Library Board, Parks and Recreation Commission,
Planning Commission, and the Utilities Commission.
Key to the comprehensive and land use planning
process is the Planning Commission, which is an
advisory body to the City Council. The Planning
Commission participates in various studies and
planning issues that are applied to guiding the
development of the community. The Planning
Commission conducts public hearings to receive public
comments on development proposals, subdivisions,
zoning ordinance amendments, variances, re-
zonings, and conditional use permits. The Planning
Commission makes recommendations to the City
Council based on information provided by staff,
various agencies, and the public.
Also instrumental to the land use planning process is
the Economic Development Authority (EDA) which is
a public corporation empowered to undertake certain
types of economic development projects. The EDA
is an arm of the City Council and handles all types
of city economic development projects including
acquiring, developing, improving, and disposing of
property, entering into contracts and operating and
maintaining public affairs.
The Housing and Redevelopment Authority (HRA) is a
public body that undertakes certain types of housing
and redevelopment projects including planning,
acquisition, clearance, rehabilitation and construction
for the provision of safe housing for persons of low
and moderate income. Projects may also include
the improvement and restoration of stagnant and
underdeveloped land. The HRA, like the EDA and
Planning Commission, is a body that will utilize the
Comprehensive Plan to aid in land use decisions and
make recommendations to the City Council pertaining
to land use policy and future use of properties.
Police
The Elk River Police Department is a full service
police department providing 24-hour police service
to over 23,000 residents within the City. The police
department is led by a Chief of Police and organized
into two divisions: Patrol Division and Administrative
Division, each commanded by a Captain. In
2013, the Police Department was comprised of 31
sworn offi cers, nine non-sworn support staff and
approximately 15 volunteer Police Reserves.
The Police Reserve Unit that has served the police
department and community since 1975, is a volunteer
organization that is comprised of non-sworn members.
Key responsibilities of the Police Reserve Unit include
response to major incidents for traffi c control and scene
security, community event security, search and rescue,
home and business security checks, general patrol, offi cer
assistance, public education, and child fi ngerprinting.
The Patrol Division is comprised of 21 offi cers assigned
to the division and is divided into twelve hour work shifts
covering a 24-hour day. Each patrol shift is supervised
by a sergeant. The Captain of the Patrol Division is
also responsible for maintaining the department’s fl eet
of vehicles, supervising the fi eld training unit and other
patrol related activities. The Police Department has
established a variety of specialized units to enhance the
overall department effectiveness including K-9, Bike
Team, SWAT/Crisis Negotiations Team, Honor Guard,
and Police Chaplain Corps.
The Administrative Division of the Police Department
is tasked with supporting and enhancing overall
department effectiveness and is comprised of the
Detective Unit, Support Services Unit, and Community
Services Unit.
Key initiatives relating to traffi c safety include the
114 / Chapter 11: Community Facilities
Elk River Comprehensive Plan
Library
The Elk River Library is a branch of the Great River
Regional Library. This library system consists of
32 libraries over a six county area offering nearly
1 million items including books, audio materials,
video materials and serial subscriptions. The public
library is located across the street from City Hall at
13020 Orono Parkway. The library has computers
with Internet access. The library also provides a
large multi-purpose room available for public events/
meetings.
Liquor Stores
The City of Elk River operates two municipal liquor
stores as authorized by Minnesota state laws and the
Elk River City Council. The Westbound Liquor Store is
located at 13484 185th Street and the Northbound
Liquor Store is located at 19348 Evans Street. Profi ts
from the City of Elk River’s liquor operations go back
into community projects which would otherwise have
to be paid for with increased property taxes. The
Elk River liquor stores offer a variety of regional,
domestic, and imported beer, wines, and liquors.
Streets Division
The Streets Division maintains 150 lane miles
of streets, over 200 cul-de-sacs and 20 parking
lots. This includes snow plowing, ice control,
crackfi lling, sealcoating, street sweeping, gravel
road maintenance, right of way maintenance and
signs within the road right of way. In addition,
the Division is responsible for the maintenance and
repair of the city’s storm water system. The division
operates the equipment service department which
repairs and maintains the city fl eet and Elk River
Municipal Utilities fl eet. The division has its own sign
department and designs and creates signs, logos and
Sherburne County Toward Zero Deaths (TZD)/Collision
Reduction And Safer Highways (C.R.A.S.H.) program
dedicated to making roadways in Sherburne County
safer. Partners in this effort include Sherburne County
Sheriff’s Offi ce, Elk River Police Department, Becker
Police Department, Big Lake Police Department, and
the Princeton Police Department.
Fire
The Elk River Fire Department, formally established in
1881, is a full-service emergency response and public
safety agency, offering a wide range of services to
provide for a healthy and safe community. Over
the years, the department has transitioned from a
single-mission of fi re suppression, to providing many
additional life-safety and value added services to
the community. The fi re department is focused on
four specifi c service areas: mitigation, preparedness,
response and recovery.
The City of Elk River has a Fire Chief who is directly
responsible for the operation of the fi re department
and overseeing the functional divisions within,
including Fire/Rescue Operations, Fire & Building
Safety, and Code Enforcement.
The Elk River Fire Department currently responds from
two strategically located fi re stations; Fire Station #1
and Station #2. Station #1 is located at 415 Jackson
Avenue and houses advanced support ambulances
which belong to a separate non-profi t ambulance
service, and Station #2 is located at 13073 Orono
Parkway which is home to the offi ce of the Fire Chief
and is typically staffed during normal business hours.
Future development patterns and traffi c levels will
infl uence the need for a future satellite station in the
northern and/or eastern section of the City.
Chapter 11: Community Facilities / 115
Elk River Comprehensive Plan
Elk River Municipal Utilities (ERMU)
Municipal Utilities
Elk River Municipal Utilities is a community-based
provider of power, water, and security systems located
at 13069 Orono Parkway. Elk River Municipal Utilities
(ERMU) provides electric and water services to Elk
River and surrounding areas, including parts of the
Cities of Dayton, Big Lake, and Otsego. ERMU bills
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
security systems while providing monitoring.
ERMU has a variety of energy and water conservation
programs including the promotion of renewable energy
sources such as wind power and power from the
local landfi ll gas. ERMU offers many programs to its
customers that saves them money and conserves
energy, including rebate programs and promoting good
daily practices to make conservation a priority. It is
active in the Energy City partnership with the City of
Elk River.
County Facilities
Elk River is the county seat for Sherburne County.
The county government center campus is located
at 13880 Business Center Drive NW along Highway
10 in the western portion of the City. This facility
includes administrative offi ces, courts and detention
facilities, as well as administration, GIS and Survey
staff. These facilities provide a signifi cant source of
local employment. The County services also provide
a source of activity bringing people to Elk River to
conduct business.
The Sherburne County DMV is located outside of the
County campus at 600 Railroad Drive.
banners for every department in the City. The Streets
Division is located at 19000 Proctor Road.
Parks System
The City of Elk River has an extensive park system
that provides quality recreation opportunities for
residents and visitors. Refer to Chapter 10: Parks,
Recreation, Trails, and Open Spaces for more
information.
Activity Center (55+ years)
The City operates an activity center located at 413
Proctor Avenue. People 55 years and older may enjoy
fi tness classes, creative art classes, cards and games
or relaxing in the Gathering Grounds coffee shop.
The Activity Center also has three computers with
internet access which are available at no charge. The
Senior Scene monthly newsletter provides up-to-date
information on tours, special events, programs and
activities available at the Activity Center.
Golf Course
The Pinewood Golf Course in Elk River is a nine-hole
executive course that supports the golfi ng community
with a variety of programs and opportunities that
suit the occasional player as well as the avid golfer.
Pinewood Golf Course is located at 18150 Waco
Street and is open early April through November of
each year, weather permitting.
Ice Arena
The Elk River Ice Arena located at 1000 School
Street NW provides opportunities for the community
including learn to skate programs, open skating and
hockey activities, leagues, clinics and tournaments,
youth and school hockey teams including Elk River
High School, and provides a venue for a bi-annual
craft show and a walking track.
116 / Chapter 11: Community Facilities
Elk River Comprehensive Plan
Schools
Schools are very important components of a
successful and viable community. Elk River is
fortunate to have outstanding schools. The following
provides a brief description of the schools in Elk River.
Independent Public School District #728
Independent School District (ISD) 728 Elk River Area
School District, the eight largest school district in
Minnesota, is a progressive district proudly serving
approximately 12,500 neighborhood students and
more than 50,000 total lifelong learners in all or parts
of Albertville, Dayton, Elk River, Otsego, Ramsey,
Rogers, St. Michael, Zimmerman and the townships
of Big Lake, Baldwin, Livonia, Nowthen, Orrock and
Stanford. The District operates nine elementary
schools, four middle schools, and four high schools.
ISD 728 has a seven-member elected School Board
with a District Offi ce located at 815 Highway 10.
ISD 728 operates a major school campus in the
City of Elk River that is located on School Street
The County Public Works and Engineering
departments have their offi ce out of a separate facility
as well, which is located off of Jackson Avenue in
downtown Elk River.
The County fairgrounds are also located at 13372
Business Center Drive between the county and city
government campuses.
between Jackson and Proctor. The campus contains
two elementary schools, two middle schools and the Elk
River High School. Ivan Sand, a community alternative
high school is located in this area as well. Meadowvale
Elementary and Twin Lakes Elementary Schools are
the only ISD 728 schools in Elk River not located on
this campus. The schools are an important part of the
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 fi fth 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
fi fth grade.
·Parker Elementary School (Grades K-5). Parker
Elementary School (Parker) is an elementary school
providing schooling for students in grades kindergarten
through fi fth 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 191st
Avenue NW with students in kindergarten through
fi fth grade. The school was designed as an energy
effi cient school and a green school and currently has
approximately 835 students. Twin Lakes was recently
named a “Minnesota School of Excellence”.
·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
offers a core curriculum in areas of English, Math,
Social Studies, and Science, as well as the areas of
Art, Computer Applications, Industrial Technology and
Physical Education. In addition, Salk offers Magnet
specifi c course work (STEM Based) in English, Science
and Social Studies for students who have registered
for the Pre-Engineering Magnet Program in 7th and 8th
grades and all students in 6th grade.
·VandenBerge Middle School (Grades 6-8).
VandenBerge Middle School (VMS) provides school for
students in grades 6-8 and is located at 948 Proctor
Avenue.
·Elk River High School (Grades 9-12). Elk River High
School (ERHS) is located at 900 School Street and
provides schooling for students in grades 9-12.
Chapter 11: Community Facilities / 117
Elk River Comprehensive Plan
Development (GED).
Built in 1930, the Handke Center is ISD 728’s oldest
facility, and is now in its 83rd year of continuous
operation serving the public. It served as the District’s
only high school from 1930 to 1961, then as a junior
high school, and later still as Handke Elementary
school and the Handke Magnet (elementary school). It
has housed the current array of programs since 2001.
A portion of the main fl oor of the 1930 building was
remodeled and restored to its original 1930 luster
during 2005-2006.
Private Schools
In addition to the public schools in the ISD 728 School
District, Elk River has the following private schools:
·My Own Montessori (Grades Pre-K – K). My
Own Montessori School is located at 1118 4th
Street NW and provides schooling for preschool
and kindergarten students in Elk River, Big
Lake, Otsego, and the Zimmerman area. My
Own Montessori School is located in Union
Congregational Church one block off of Highway
10 with Norfolk as the cross street.
·St. Andrew’s Catholic School (Grades Pre-K – 5).
St. Andrew’s Catholic School is located at 428
Irving Avenue NW and offers schooling for children
in pre-kindergarten through fi fth grade.
·Solid Rock Christian Academy (Grades K – 12).
Solid Rock Christian Academy was founded in
1994 and is located at 11800 196th Avenue NW,
west of Highway 169.
·Monarch Montessori (Age 33 months – Grade 6).
Monarch Montessori School provides a unique
alternative to traditional schools, both public and
private within the Elk River area. The School is
located at 19277 Vernon Street (by Meadowvale
Elementary School) and serves the Elk River,
Otsego, Rogers, Zimmerman, Big Lake, and
Monticello communities.
·Ivan Sand Community High School (Grades 9-12).
The Ivan Sand Community High School (ISCHS) is
an alternative high school that opened in 1998 for
students with different or unique needs. ISCHS
is a secondary program that is designed to help
students, who may be at-risk of not graduating,
earn a diploma. ISCHS provides schooling for
approximately 120 students in grades 9-12 and is
located at 1232 School Street in Elk River.
The infl uences of the ISD 728 facilities, and the
importance of the public school system on community
development, create shared interest for the City
and ISD 728. A strong working relationship and
collaborative approaches should be part of addressing
future issues. Among the issues related to school
facilities area:
·Maintaining a quality setting for Elk River schools;
·Planning for facility needs with continued growth
in east Elk River;
·Addressing challenges of school funding and
growth in other parts of the district;
·Community and regional recreation needs; and
·Capturing the economic benefi ts of visitors
attracted by the schools.
Charter School
Spectrum High School (Grades 6-12). Spectrum High
School is a public charter school located at 17796
Industrial Circle NW in the southeastern portion of Elk
River. The charter school in celebrating its eight year as a
member of Elk River during the 2013-2014 school year.
Handke Center
The historic Handke Center located at 1170 Main
Street is home to the following ISD 728 programs
which enhance the education programs within the
City: Community Education, Early Childhood Family
Education (ECFE), Early Childhood Special Education
(ECSE), Early Childhood Screening and health services,
Adult Basic Educaiton (ABE), and General Education
118 / Chapter 11: Community Facilities
Elk River Comprehensive Plan
Minnesota School of Business- Elk River
College Campus
Minnesota School of Business Elk River campus is
located off of Highway 169 at 11500 193rd Avenue.
The Elk River Campus opened its doors in 2009
and offers career focused college degree programs
in business, accounting, technology, veterinary
technology, health and legal science fi elds. While
relatively new to the City, student enrollment and
faculty have grown since its inception. Internship
opportunities provide an excellent way to engage the
students in City government and provide assistance to
local businesses throughout the City.
Religious Institutions
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
add to the quality of life in a town the size of Elk
River. They provide opportunities for neighbors to
connect, socialize, and they also provide employment
opportunities.
Cemeteries
Four cemeteries are located in Elk River including:
·Meadowvale Cemetery, organized in 1895, located
off of Meadowvale Road NW approximately two
miles north of County Road 33 (a portion of the
cemetery is located within Livonia Township;
·Orono Cemetery, graves dating back to 1855,
located on the south side of Lake Orono in the
western portion of the City;
·St. Andrew’s Catholic Cemetery, organized in 1891
with records dating to the 1860’s, located south of
193rd Avenue and west of Highway 169; and
·Vernon Cemetery, organized in 1915 with land
deeded in 1878 and some burials fi rst seen in
1855, located two blocks west of Evans Street on
Railroad Drive in Elk River.
The cemeteries have suffi cient available space to
meet the anticipated demand for burials in cemeteries,
at least through the year 2040.
Community Events
The City of Elk River has many
celebrations and community events
throughout the year. These events
help defi ne Elk River’s unique sense
of place and contribute to the City’s
high quality of life. Some key
events include, but are not limited
to ArtSoup Community Art Festival,
4th of July Elk River, Taste of Elk
River, Shiver Elk River, and the
Riverfront Concert Series.
Chapter 11: Community Facilities / 119
Elk River Comprehensive Plan
City Facilities and Services
City Hall
City Hall will continue to provide cost effective services
that meet the needs of the residents, business owners,
and property owners alike. The City will strive to
make City Hall a showcase facility that simultaneously
considers social, economic and environmental factors.
Examples of this include continuing to make cost-
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
water management techniques, low maintenance native
landscaping, and similar techniques that are cost-
effective, visually attractive, and environmentally sound.
Streets Division
The Streets Division and associated facilities will
continue to identify opportunities to provide cost-
effective, safe, and environmentally sound City
vehicles and equipment. The Streets Division will
also continue to explore opportunities for alternative
design, construction, and maintenance techniques for
City streets and similar facilities.
Police and Fire Department
The City will continue to monitor the current and
anticipated staffi ng, equipment, and facility needs
of the Police and Fire Departments and will explore
opportunities to address those needs in an effi cient
and cost effective manner. The City will also continue
to work with neighboring and overlapping jurisdictions
to explore the most appropriate ways to provide
police, fi re and emergency medical services to Elk
River and the region.
Energy Consumption
The City will explore ways to reduce its energy
consumption. For example, the City will strive to replace
ineffi cient lighting in City facilities, replace ineffi cient
City vehicles and equipment with more effi cient vehicles
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!,
and the International Council on Local Environmental
Issues (ICLEI)) to promote an awareness and
understanding of energy conservation efforts and
to seek grants to implement energy conservation
measures.
The City will strive to update its ordinances and
policies to address energy conservation issues that
affect community facilities as well as other types of
development.
Other Facilities and Services
ISD 728
It is critical for the City of Elk River to continue to
coordinate with the Independent School District (ISD)
728 Elk River Area School District on future land use
needs or issues moving forward.
Shared Community Facilities and Services
The City of Elk River and neighboring and overlapping
agencies and jurisdictions should continue to
coordinate efforts to provide cost-effective services.
Specifi cally those potential shared facilities that may
be diffi cult for an individual jurisdiction to provide on
its own, but may be feasible if shared with others.
Telecommunications
The City recognizes that high-speed information
services are a critical component of Elk River’s
infrastructure and a critical component of economic
development and quality of life. As such, the
City will listen to the hopes and concerns of
residents, business owners, and industries relating
to telecommunications. As the City continues
to grow and develop and implements plans to
upgrade and extend municipal sewer and water
lines, it will also consider opportunities to work
with telecommunication providers and private utility
companies to enhance telecommunication throughout
the City where feasible.
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.
Elk River Comprehensive Plan
Chapter 11: Community Facilities / 120
Figure 5-2: Future Land Use
120 / Chapter 11: Community Facilities
Figure 11-1. Community Facilities
N
)m
)m
+¡
+¡
G`WX
G¥WX
Sv
Sy
S¥
GkWX
GlWX
G¥WX
G`WX S¡
Sì
St
Sw
Sx
G¥WX
SÎ
M.O. Park
Kelley Farm
Northstar Corridor
Train Station
Spectrum High School
Twin Lakes
Elementary School
Vernon Cemetery
Solid Rock Christian
Academy & Church
Elk River
Landfill
Meadowvale
Cemetery
Meadowvale
Elementary
School
Monarch Montessori
St. Andrew's
Cemetery
County Government Center
1 23
4
5
6
7
8
10
9
11 12
13
14
15 16 17
Woodland Trails
Park
Hillside City
Park
Camp Cozy
Park
Meadowvale Heights
Park
Youth Athletic
Complex
Big Tooth
Ridge Park
Rice Lake
Park
Burr Oak
Park
Woodland Trails
Park
Birch Meadow
Park
Oak Knoll
Park
Sedge Meadow
Park
Lions Park
Center
Alba Ridge
Park
Harris Island
Park
Windsor
Park
Babcock
Park
Pinewood Golf
Course
Royal Valley
Park
Trott Brook
Farms Park
Kleiver Marsh
Park
Highlands East
Park
Kleiver Lake
Fields Park
Ridgewood
Park
Orono
Park
Future City
Park
Oak Savanna
Park
Highlands West
Park
Oxbow
Park
Deerfield Hill
Park
West Oaks
Park
Riverplace
Park
Fresno
Park
Kleiver Point
Park
00.511.52
Miles
Community Facilities
Existing Other Public Institutions
Existing Schools
Existing Cemeteries
Open Space
Parks
Water
1. Sherburne County
Fairgrounds
2. City Hall/Police
Station/Fire Station #2
/Municipal Utilities
3. Elk River Public Library
4. Orono Cemetery
5. Elk River Streets Division
6. Ivan Sand
Community School/
Elk River Community
Education Center
7. Salk Middle School
8. VendenBerge
Middle School
9. Ice Arena
10. Elk River High School
11. Lincoln Elementary
School
12. Parker Elementary
School
13. Elk River
Activity Center
14. Handke Center
15. My Own
Montessori School
16. Fire Station #1
17. St. Andrew’s
Catholic School
Chapter 11: Community Facilities / 121
Elk River Comprehensive Plan
Implementation
The following are statements that refl ect strategies that are geared toward community facilities.
·Continue to evaluate and pursue the costs and
benefi ts of partnering with other government entities
to provide cost effective community services in Elk
River. When appropriate, explore contracting with
other government entities for services.
·Continue to evaluate and pursue the costs and
benefi ts of sharing Elk River’s services with other
communities.
·Continue to coordinate and/or partner with
Independent School District 728 on pertinent
services such as community education and
recreation programs.
·Consider developing and implementing a plan to
ensure that new construction and renovations
pertaining to City facilities, follow green technology
standards, where feasible.
·Where appropriate, promote native landscaping that
reduces the use of chemical fertilizers, herbicides,
pesticides, irrigation and fossil fuel use.
·Consider developing and implementing a plan
to provide community gardens on City property
or partner with Elk River institutions (ISD 728,
Sherburne County and religious institutions) to
provide community garden space where feasible.
·Lead by example by using rain gardens, rain barrels,
and other techniques that others can use on their
properties.
·Consider developing and implementing an
environmental preference purchasing program.
Consider partnering with other government entities
to maximize savings. Where appropriate and
feasible, engage institutions, businesses, and
residents.
·Continue to conduct periodic energy audits of all
pertinent City facilities. Identify and implement
strategies to reduce carbon emissions, increase
energy effi ciency, and provide the City with
monetary savings.
·Consider developing and implementing strategies
to reduce the use of fossil fuel in City vehicles and
equipment. Consider the use of hybrid vehicles,
alternative fuel-effi cient conventional vehicles
and other types of vehicles that reduce fossil fuel
use. Also, develop and implement strategies that
reduce the number of vehicle miles traveled for City
business using fossil fuel vehicles.
·Consider developing and implementing strategies to
use “green” cleaning products in all City facilities.
·Consider developing and implementing strategies to
help the Streets Division continue to implement their
tasks in a sustainable and cost-effective manner.
·Continue to inventory and analyze all City equipment
to make sure that it works safely and effi ciently.
·Continue to budget and plan for equipment
replacement and repair as needed. Prepare a cost-
benefi t report to support decisions.
·Continue to partner with or support others in their
efforts to provide events and celebrations that
benefi t Elk River residents and business owners.
·Encourage City Staff and Elected Offi cials to promote
the City through speaking engagements, news
articles, and presentations at a variety of events, as
established by City policy.
·Actively solicit citizen participation in City affairs,
including committees and events.
·Work with the School District to promote
opportunities for youth to be involved in City
activities.
122 / Chapter 11: Community Facilities
Elk River Comprehensive Plan
This page intentionally left blank.
Chapter 12: Community Development / 123
Elk River Comprehensive Plan
Introduction
Communities with strong economies have the fi nancial resources
necessary to support the services that their residents need and
desire. However, sustainable communities recognize that community
development is not simply about increasing the fi nancial 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 fi nancial wealth of individuals. Rather, community
development in a sustainable community is about bringing together
social, natural, and economic resources to sustain the “whole”
community.
Ch
a
p
t
e
r
1
2
:
C
o
m
m
u
n
i
t
y
D
e
v
e
l
o
p
m
e
n
t
124 / Chapter 12: Community Development
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
Source: City of Elk River, WSB & Associates, Inc.
($5,000,000)
$0
$5,000,000
$10,000,000
$15,000,000
$20,000,000
$25,000,000
$30,000,000
Gross Net Tax
Capacity
Less Captured Tax
Increment
Net Tax Capacity
for Levy
Tax Levy
2010
2011
2012
2013*
Chapter 12: Community Development / 125
Elk River Comprehensive Plan
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
offi cials 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.
126 / Chapter 12: Community Development
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:
Top 20 Employers within Elk River
Largest EmployersProduct/ServiceFull-Time
Employees
Part-Time
Employees
Total
Independent School District 728Education8927061598
Sherburne CountyGovernment56038598
Wal-MartRetail Storen/an/a380
Guardian Angels of Elk River, Inc.Nursing/Housing79238317
Great River EnergyElectric Utility2360236
Tescom CorporationPressure Control Devices1870187
City of Elk RiverGovernment11445159
MenardsRetail Storen/an/a150
Cornerstone Auto ResourceAutomobile Sales10542147
Coborn’s Grocery Store2795122
Sportech, Inc.Plastics Thermoforming1038111
Cub FoodsGrovery Store4465109
Metal Craft Machine & EngineeringPrecision Maching1005105
Cretex Companies, Inc.Precast Concrete Products1000100
Crystal Distribution, Inc.Custon Curb Adaptors100n/a100
The Home DepotRetail Storen/an/a100
The Bank of Elk RiverFinancial Institution861399
E&O Tool and Plastics, Inc.Injection Molding98098
Faribault Foods, Inc.Pouch Packaging79n/a79
Chart 12-2:Commuting-2010
0.0%
10.0%
20.0%
30.0%
40.0%
50.0%
60.0%
70.0%
80.0%
90.0%
199020002010
Percent of Workers
Traveling 35 or More
Minutes to Work
Drove Alone - Car, Truck
or Van
Source: City of Elk River
Source: US Census
Chapter 12: Community Development / 127
Elk River Comprehensive Plan
Planning Efforts
Economic Development Strategic Plan
The Elk River 2013-16 Economic Development Strategic
Plan seeks to “Modify [the] Industrial Development goal to
Business Development and include two sets of strategies:
1) Industrial Development Strategies, and 2) Commercial
Strategies.” Under the Business Development goal is
the following objective: “Attract new businesses and
support existing businesses to increase the city’s industrial
tax base, commercial base and employment base.”
The Economic Development Strategic Plan provides a
strategic approach for attracting industrial and commercial
businesses.
Strategic Industrial Marketing Plan
There is a realization among City offi cials that reaching the
industrial development goals will require more effort than
simply designating property in a land use plan; especially
as it relates to attracting new business to Elk River.
To this end, the City has created a Strategic Industrial
Marketing Plan. The vision of this plan is for Elk River “to
be the light industrial hub for small to medium-size fi rms
in the northwest metro region.” The Strategic Industrial
Marketing Plan provides the framework for identifying
opportunities and attracting new businesses to Elk River.
Energy City 2024 Action Plan
The Energy City Commission is developing an action
plan to focus its efforts on creating tangible targets and
benefi ts to the City, its residents, and business partners.
171st Avenue Focused Area Study (FAST)
The 171st Avenue FAST has an employment focus. It
seeks to leverage key assets that are embedded in the
community to reinforce Elk River as a regional hub. The
Plan also seeks to create nearly 6.5 million square feet of
retail, offi ce and industrial space at the maturity of the
plan, which is a 25 to 30 year planning horizon.
Redevelopment
The roots of redevelopment are intrinsically tied to local
economic factors. Limitations on income means a lack of
disposable income needed to reinvest in property. Over
time, the lack of investment leads to a deterioration
of property. These conditions of blight often spread to
adjacent properties.
Redevelopment will become an increasingly important
community development issue for Elk River. Several
factors defi ne the need for city action:
·Redevelopment becomes a public issue because
market forces are not likely to solve the problem.
While Elk River has the ability to expand,
development demand can bypass redevelopment
parcels and seek out vacant land. There is little or
no incentive to correct the problems on blighted
parcels. Vacant land avoids many of the barriers
of redevelopment sites.
·Redevelopment property is often more expensive.
Acquisition includes both land and buildings.
Redevelopment often requires the assembly of
smaller parcels into a larger site. Multiple property
owners with differing interests compound the
complexity of land acquisition.
·Redevelopment sites have more site preparation
costs. Buildings must be demolished and the site
cleared before new construction can occur.
·Redevelopment may face the need and cost of
environmental remediation. Old buildings may have
asbestos or other hazardous materials that require
special treatment. Certain commercial and industrial
may have allowed pollutants to enter the soil.
All of these factors combine to create signifi cant
economic barriers to redevelopment. Removal of
these barriers is a primary focus of city actions
related to redevelopment.
Mississippi Connections Redevelopment
Framework
·The Mississippi Connections Redevelopment
Framework establishes a long-range vision for the
400-acre core of Elk River. The objective of the
plan is to, “provide guidance to property owners,
stakeholders, and community leadership to
position the area in such a way that strengthens
the area to survive the impacts of time and
change; methods to reestablish the downtown
area as a destination; a desirable address to do
business, live, and enjoy the diversity of uses in
a character rich downtown amid the hustle and
bustle of a growing community.”
128 / Chapter 12: Community Development
Elk River Comprehensive Plan
Mississippi Connections Area
The area identifi ed 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.
Continue to Build Connections
A key to the revitalization and sustainability of the
Mississippi Connection area is creating connections
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-defi ned 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.
Chapter 12: Community Development / 129
Elk River Comprehensive Plan
Tools for City Actions
·The Community Development section of the
Comprehensive Plan presents items that serve
as a focus for city actions. These actions seek
to achieve the vision for the future of Elk River
in areas where market forces alone will not be
suffi cient. State Law provides a broad array of
powers and tools that may assist the city in these
initiatives. The following section provides a brief
discussion of the tools currently available to the
city. This information is designed as a point of
reference in continued community development
planning.
Finance Tools
Community development actions require a framework
for fi nancial decision-making. The investment of
public dollars to achieve community development
objectives should be guided by several key principles:
·Financial resources are limited. The City
has limited funding to apply to community
development initiatives, so the use of resources
must be targeted to achieve the greatest effect on
community needs.
·Financial decisions require a long-term perspective.
The current use of fi nancial resources may reduce
monies available in the future. In evaluating
short-term opportunities, it is important to question
the long-term impact on community development.
·Public funds should lead to private investment.
While this section focuses on public fi nance
actions, the Comprehensive Plan cannot become
reality without private investment. The use of
public funds should be targeted to actions that
encourage private investment in Elk River.
Tax Increment Financing
·Tax increment fi nancing (TIF) is the primary
development fi nance tool available to Minnesota
cities (Minnesota Statutes, Sections 469.174
through 469.179). TIF is simple in concept, but
complex in its application. Through tax increment
fi nancing, the property taxes created by new
development (or redevelopment) are captured and
used to fi nance activities needed to encourage
the development. The challenge in using TIF lies
with the complex and ever changing statutory
limitations. The City has utilized TIF sparingly in
the past, and it is expected that it will continue to
do so in the future.
Tax Abatement
Tax abatement acts like a simpler and less powerful
version of tax increment fi nancing. With TIF, the city
controls the entire property tax revenue from new
development. Under the abatement statute (Minnesota
Statutes, Sections 469.1812 through 469.1815), the
City, County and School District have independent
authority to grant tax abatement.
Special Assessments
Public improvements are often fi nanced using the
power to levy special assessments (Minnesota
Statutes Chapter 429). A special assessment is
a means for benefi ting properties to pay for all or
part of the costs associated with improvements,
and to spread the impact over a period of years.
This tool can be applied to both the construction of
new improvements and the rehabilitation of existing
improvements.
Utility Revenues
The City operates three municipal utilities: water,
sanitary sewer and storm water. The revenues from
the operation of these utilities are available to pay
for capital improvements in support of community
development initiatives. State Law (Minnesota
Statutes, Section 444.075) gives the authority to
pledge these revenues to general obligation bonds for
utility system improvements.
Capital Improvement Bonds
Cities may issue capital improvement bonds
(Minnesota Statute, Section 475.521) for specifi c
purposes.
Microloans
The Microloan program provides low interest, long-
term (i.e. greater than one year) loans as incentives to
encourage the following:
·Industrial development that supports the tax base
and brings quality jobs to the city
·Rehabilitation of existing buildings in the Central
Business District
·Energy Effi ciency improvements to businesses and
manufacturers
130 / Chapter 12: Community Development
Elk River Comprehensive Plan
·Encourage the development of new, value-added
industries and businesses that can benefi t from the
area’s amenities and existing industries.
·As appropriate, coordinate with the Elk River
Area Chamber of Commerce, neighboring and
overlapping jurisdictions, and others to promote Elk
River and/or the area as a special destination area
with unique shops and restaurants and diverse
recreation activities and community events.
·Strive to identify under-utilized or under-served
local and regional markets and give priority to local
business development to service these markets.
·Coordinate with businesses and industries to
explore opportunities for the City to stand out as
a leader in sustainable business and community
development.
·Analyze the long-term viability of existing and
proposed neighborhood convenience nodes in
the City. Where appropriate, work with property
owners and neighbors to ensure continued success
of neighborhood convenience uses in a manner
that compliments the surrounding neighborhoods.
·Identify and implement strategies to enhance
the infrastructure in a way that can help support
residents telecommute or conduct business out of
their home.
·Continue to promote and encourage the expansion
of jobs and buisness growth within the city.
Implementation
The following are broad implementation strategies
refl ecting the City’s vision, specifi cally as it relates to
community development.
·Set retention of existing businesses and industries
as a priority of the City’s economic development
plan.
·Continue implementation of periodic BR&E
meetings on an individual basis with businesses
and industries to listen to concerns and discuss
opportunities for success. Also identify any
perceived or real barriers or obstacles (such as
overly restrictive ordinances) that the City could
potentially remove or minimize to help businesses
and industries prosper, while still protecting the
health, safety, and welfare of the public.
·Coordinate with Sherburne County, the Elk River
Area Chamber of Commerce, Minnesota School of
Business - Elk River Campus, the School District,
GreaterMSP, and others in their efforts to promote
training opportunities that can help businesses
and industries prosper. If appropriate, co-sponsor
and/or offer City facilities for employee training
programs.
·Coordinate with energy providers and others to
help businesses and industries conserve energy
resources and reduce operating costs.
·Continue to promote Elk River’s high quality of life
as a means to help attract new businesses and
industries.
Chapter 13: Community Image / 131
Elk River Comprehensive Plan
Introduction
Community image is a thread running through the entire Comprehensive
Plan. Every chapter of the Plan deals, in some manner, with the
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 defi ne 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.
Ch
a
p
t
e
r
1
3
:
C
o
m
m
u
n
i
t
y
I
m
a
g
e
132 / Chapter 13: Community Image
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 specifi c aspects of community image
for Elk River.
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 defi ned and identifi ed?
·How can the entrances (or gateways) to Elk River be more clearly identifi ed?
·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 defi ne and enhance
community image. The public investment in streets and the adjacent right-of-way can have
signifi cant 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.
Chapter 13: Community Image / 133
Elk River Comprehensive Plan
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 refl ection 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
place that blends the built and natural environment. Other open space initiatives seek to
establish a stronger connection between the community and the River.
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 fi nd ways of using
these private investments to enhance the visual appeal of the area. Business interest
will center on cost and effective communication.
134 / Chapter 13: Community Image
Elk River Comprehensive Plan
Public signage is an important element of image
as well. Directional and informational signage can
refl ect 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
area;
·Continued enhancement of community orientation
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
redevelopment will be critical to ensure the character
of the downtown is sustained.
Chapter 13: Community Image / 135
Elk River Comprehensive Plan
·Where appropriate, support and assist efforts
to improve the appearance of commercial and
industrial developments along major corridors
within the City including along Hwy 169, Hwy
10, within the downtown, and at key entry points
and industrial parks though the use of building
rehabilitation, screening and enhanced landscaping
and signage.
·Continue to work with properties that detract
from the established community image goals by
requiring compliance with all city codes through
effective enforcement strategies.
·Continue to promote private reinvestment in Elk
River. One way to accomplish this task is to
provide assistance and information with regard
to available programs that may assist property
and business owners in building renovations,
expansion, enhancement and beautifi cation.
·Consider developing a plan or implementation tool
that offers incentives for infi ll development and
removal of substandard buildings or consolidation
of land where feasible.
·Encourage volunteerism and participation in
community activities and acceptance of City
leadership positions. Ideally this will lead to
increased and improved communication and
interaction between City and residents, business and
property owners, and other community members.
·Work with neighboring and overlapping
jurisdictions to guide appropriate land uses near the
boundaries of Elk River (both within the City and
within the surrounding communities).
·Where feasible, coordinate with neighboring
communities and Sherburne County to ensure
compatibility between the various Comprehensive
Plans, Subdivision Regulations, and Zoning
Ordinances.
·Explore opportunities to coordinate with agencies
to implement compatible standards relating to
protection of natural and cultural resources.
·Promote the protection and enhancement of
important historical and natural resources as a
means to maintain the integrity, heritage and local
character of the community.
·Continue implementation of the Mississippi
Connections Plan and streetscaping enhancements
throughout the entire city, in the downtown area in
particular.
·Continue the implementation of the Community
Brand Compass and Brand Navigator to establish
and enhance the cohesive image for the entire
community.
·Continue to support adaptive reuse of existing
buildings where appropriate.
·Promote the development and implementation
of a Comprehensive Plan that effectively and
effi ciently 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
be to develop a plan to keep the City’s gateways
appealing by maintaining and enhancing lighting,
signage, public art, landscaping and other features
at the City entrances.
Implementation
The following are statements that refl ect strategies that are geared toward community image.
2014 Comprehensive Plan comments and response
Commenter Comment Action
Clark Johnson General comments,support for the plan None
Parks and Recreation Commission Remove road connection between CR 33 and Cr 1 Segment removed from Figure 6-10(page 66),
through the Woodland Trails park and letter sent to County. The County has
indicated they will remove the segment from their
document.
Parks and Recreation Commission Remove road connection between Highway 10 and 192nd, Segment removed from Figure 6-10.
along Waco street alignment
Parks and Recreation Commission Property north of YAC should be guided for park land,to Land is guided Industrial in Figure 5-2(page 36)
facilitate the expansion of the complex
Parks and Recreation Commission The green space along the Great Northern Trail should be Green space in Figure 5-2 adjusted as suggested
adjusted to reflect a high quality forest in the area by Dave Anderson.Language added to the open
space description in Chapter 5(page 40): "In
evaluating expansion of the open space land use,
due regard to unique and substantial
environmental features shall be given."
Marty Haarsted Owner wants property to be included in the Urban Figure 8-1 adjusted to incorporate property in
Services District(USD) USD(page 87).
City of Otsego Population projections for Otsego are lower than Otsego. Population numbers adjusted per Otsego in Table
4-B. (page 22)
Rob,Tam,and Jesse Bullis Opposed to road through Woodland Trails park Segment removed from Figure 6-10.
Susie Newman Opposed to road through Woodland Trails park Segment removed from Figure 6-10.
Cretex companies Wants the future road shown through the Cretex property Segment retained. Language written by City
be removed or diverted around their operations Attorney added:"Some of the proposed changes,
such as the connection between Proctor and
Upland Avenues along the School Street
alignment will not be made unless or until
requested by the affected property owner.
(Summary of Roadway Improvements and
Changes,page 65)
Staff Confusion regarding existing land use versus existing use Figure 5-1,(page 34)now titled"Existing Use of
of land on Figure 5-1.The figure notes how the land is Land".
currently used.
Mary Ernhart Opposed to road through Camp Cozy Segment removed from Figure 6-10.
Michael Brown Opposed to road through Camp Cozy Segment removed from Figure 6-10.
Dave Anderson Opposed to Road through Camp Cozy,wants future Segment removed from Figure 6-10,area north of
athletic field expansion YAC guided for industrial.