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8.0.EDSR 07-09-2001 S �j Item # 8 City of Elk River MEMORANDUM TO: Elk River Economic Development Authority FROM: Michele McPherso D Director of Planning DATE: July 9, 2001 SUBJECT: LU 01-02 and ZC 01-03 Land Use and Zone Change by Elk River Station LLP from Industrial and 2 V2 Acre Residential to Community Commercial and Medium Density Residential (PUD) Attachments 0 • Location Map • Article - Transit Oriented Development • Preliminary Plat, Elk River Station Location Intersection of 171'Avenue and Twin Lakes Road Analysis The Economic Development Authority has requested the opportunity to review all rezonings from industrial to residential or commercial. The transit-oriented development, Elk River Station will rezone a portion of the Eull property from light industrial to planned unit development. A portion of the Eull property was zoned light industrial in 1997 when the city was attempting to increase its inventory of industrial property. The total subject property is approximately 77 acres. Twelve acres are being acquired by MNDoT for the Northstar Commuter Rail Park&Ride/Depot site. This area is located directly adjacent to the railroad tracks. The remaining 65 acres is proposed for Elk River Station. The current zoning districts are outlined on the attached preliminary plat. They include Agriculture Conservation,Light Industrial,and Single Family Residential(2'h acres). The area of Light Industrial zoning totals approximately 7-8 acres outside of the area devoted to the Park &Ride site. At the time the property was rezoned,the Northstar Corridor had not selected a • depot site. Memo to EDA/LU 01-02 and ZC 01-03 July 9,2001 Page 2 When analyzing the request for rezoning,the City will need to ask itself what is the highest and best use of this property? The City has invested millions of dollars in the Twin Lakes Road corridor,and with the projected number of vehicles estimated to use this road,is Light Industrial the best zoning for this area? Perhaps a focus toward commercial and office would be better. Also,the 50+ acres to the east may be better suited for inclusion in the Urban Service District to generate higher density development, be it residential or Business Park. There has been discussion that residential will not work in this location because no one wants to live next to the railroad tracks. As with all things in life,people make choice about where they live. Some people do not want to live on large lots;others do not want to live in high-density neighborhoods. The developer has designed the site with the proximity to the railroad in mind. Twin Lakes Road/171St Avenue will be yet another gateway into the City of Elk River. This road will provide transportation alternatives to residents living on the east side of the city and the west side of Anoka County. Redevelopment will occur at the intersection of 17150 Avenue and Highway 10. At a minimum,if the EDA does not agree with the proposed development,it may agree that a rezoning to Business Park would be appropriate for the subject parcel. Summary Staff agrees that industrial property and the creation of jobs is important in the overall balance of the city's development. Elk River Station has the opportunity to provide jobs,although in another area than industrial. It also provides an opportunity to"put Elk River on the map"in another way,by providing a neighborhood that takes advantage of transit and other modes of transportation for the residents that live there. It can be said that the catalyst for Elk River Station is the presence of the Northstar Corridor Depot. The EDA is asked to make a motion either supporting or opposing the proposed Elk River Station. • S:\PLANNING\MICHMC\MEMOS\7 6 01 EDA ER Station.doc *,1/4 n . tI ",,, . /elk, \ \\\ „, 3_. -- V� 14 ..... YAR91 all k ..,. Ilk ` 1., itt. .). Z5 , N AV 1111111111M111111 , I. 35 4 i CROSSR..1 •• VAX) IM e GA 2 1 Ratk iffirifF4' los V A 00till. Aft‘' ,, -,-T--re. U.. t g 1 .+ AYoE +� , Ds V 1 ' 2 t ' I11 sr 0 + 1 `Z hi N . 1 .. ,. �f LSTH ili N. \ \ \ TM \'w ..,,\\ ''>-(4., I N Location Map Elk •�, Case Number: P 0 1-05 River • • Northstar Corridor Commuter Rail Line Station Neighborhood Development Princip les and Guidelines P paw 4* :‘-'110 '...'.:111141111111;111,-,16' 00- ..' 41111 , ' lifi li,;: --41111011.-- --.'''' pr- - . apio,.. 0 -- -:-,-..\., . .., - ...e-.'••. ''' '",,-.....;--,, .A''V^ . 4.,$' ,- 0 X ♦..I41 .mo ``. ti 11 .� i �®���� ; Or `♦ � q � ; II ♦ a 4 Northstar Corridor Development Authority E February 2000 Introduction • Introduction The Northstar Corridor Major Investment Study The purpose of the Northstar Corridor Major metropolitan planning organizations (the Investment Study and Environmental Impact Metropolitan Council in the Twin Cities Statement is to evaluate the future transporta- and the St. Cloud Area Planning tion needs of the corridor. Organization) have consequently focused on preserving and managing existing facili- Over the past fifteen years, the communities ties,with limited added capacity projects. in the Northstar Corridor have experienced substantial population and economic growth. The Major Investment Study addressed a Along with this growth has come limited wide range of possible transportation solu- highway expansion,increased automobile tions to these problems including improve- ownership, and more auto trips. Increased ments to roadways and bridges, commuter • congestion and the rail service,feeder bus reduced ability to easily improvements, system travel to key destinations management tech- gn _ it niques and no changes will be a significant deter- rent to the continued I �l 40.* 11.. f, beyond those already growth of the area. - �� . < �' programmed. •Growth in peak period F� To evaluate these alter- : s i ,i vehicle miles traveled over ~: natives, several studies the last decade,particular- 4were prepared includ- ly in the Twin Cities area, ing forecasts of land has strained the ability of development under the existing facilities to accommodate the commuter rail option, rail station designs, a demand. Both metropolitan areas - the Twin financial plan and an implementation plan. Cities and St. Cloud — recognize the need An environmental impact statement was pre to provide efficient transportation facilities to pared for the commuter rail/feeder bus accommodate the expected growth in a sus- option. tainable manner,while preserving the mobili- ty which makes such growth possible. These Station Neighborhood Development However,both metropolitan areas are increas- Principles and Guidelines are another of the • ingly constrained in their financial ability to special studies conducted, to support the provide new transportation facilities for peo- Major Investment Study. ple and goods. Mn/DOT and the two Station Neighborhood Development Guidelines 1 Northstar Corridor Development Authority Introduction • The Benefits of Transit-Related Development The Relationship between Transit and Land Use ?,, _,, ,,,,i,....;,,,,,, The introduction of rail (or other) transit can provide a boost to �,� . . -47, 4 w,, a ` land development opportunities near stations if there is a strong L,„ ;, ,-,- 1/..;,<• „ investment climate and ift public plans, regulations and,possibly, ”' , x incentives are in place. With the right combination of priv,t.. ate ,, `..1,- andpublic factors, transit Station Neighborhood development .),. a , ,-;„,_ -- -= g can increase system ridership,help create interesting, sustainable neighborhoods or districts,help guide regional growth and broaden the range of choices in travel,residence and shopping. In regions of the country that have favorable market conditions, high levels of transit ridership, and supportive public policies, considerable development has occurred near transit stations. Benefits of Appropriate Station Neighborhood Land Development III Station Neighborhood land development can have these benefits: • Increased system ridership • Increased property values • Increased property tax revenues •Alternatives to auto-oriented development • Support for urban revitalization • Greater consumer choice • Improved environmental quality • Enhanced retail opportunities Increased System Ridership Ridership on the Northstar commuter rail will be enhanced by ,;, having a sufficient number of riders living and working near the 1-., stations. Many studies have shown that transit use is much higher .' • y for those livingwithin walkingdistance of a station than those int ii_ living in the surrounding region. Station Neighborhood Development Guidelines 2 Northstar Corridor Development Authority Introduction • Improved Property Values, Tax Revenues and Fiscal Health Compact Station Neighborhood development would provide a positive fiscal benefit. Residential and commercial properties, both buildings and raw land,near transit stations typically appre- ciate in value more rapidly than other properties. The effect of transit on property values is most pronounced when combined with density control changes. (Source: Joint Center for Transit Research,"Assessment of Changes in Property Values in Transit Areas,"Rice University, 1990.) To the extent that development around a station is increased beyond what might have been experienced without the station, property tax revenues to the city,county and school district will increase. Finally, studies by various organizations around the country have confirmed the belief that low-density housing is sometimes a net fiscal loss to a city while mid- or high-density housing is usually a net fiscal benefit. In a 1996 Lincoln Land Institute paper titled • "Land, Infrastructure, Housing Costs and Fiscal Impacts Associated with Growth," the authors concluded that more effi- cient development patterns: • Can reduce land consumption for development by 60 percent • May slightly reduce housing costs • Can save five percent on the cost of schools and 15 percent on utility line extensions • Can lower ongoing operating costs for roads and infrastructure Alternatives to Auto-Oriented Development Every community should contain a range of choices in housing, shopping and community character. Many cities across the U.S. are dominated by low-density, auto-oriented residential areas and shopping centers fronted by large parking lots. Transit Station Neighborhoods are a good location to provide an alternative desired by a portion of the market. Support for Urban Revitalization • Some of the rail transit stations proposed in the Northstar Corridor are in locations that are ready for redevelopment or already experiencing some degree of reinvestment. The Station Neighborhood Development Guidelines 3 Northstar Corridor Development Authority Introduction improved access, visibility and traffic resulting from the transit # station can provide the additional help that a developer needs to make a difficult project feasible. The public benefits from Station iNeighborhood redevelopment include more efficient use of - existing infrastructure, an increase in property taxes and greater community stability. Owners near the site benefit through -T- increased values for their properties. Transit riders gain increased convenience and a more pleasant commuting experience. Finally, public investment in transit infrastructure gives a strong signal of the level of commitment to a transit corridor. More Consumer Choices The principles of compact development address many of the needs of our region's expanding population of elderly, singles, single-parent households,"empty-nesters," and members of other demographic groups. Opportunities exist within these pedestri- an-friendly communities for a wider variety of housing types and prices and increased mobility for the young, elderly and dis- abled. In addition, development near transit provides people with the cost-saving option of not having to use a car or pur- chase a second car. Improved Environmental Quality Transit-supportive development provides the opportunity to refocus growth away from open space and farmland. This shift reduces somewhat the amount of land consumed by develop- ment,preserves open space and protects air and water quality. In - Station Neighborhoods, compact development makes walking, ..=t� bicycling and transit a more efficient and desirable means of trav- el. The use of transit rather than private autos further reduces the need for vehicle trips, resulting in lower emissions, which benefits air quality. Enhanced Retail Business Opportunities Commuter rail can provide a boost to retail and service business opportunities in the immediate vicinity of transit stations. Although the consumer traffic from the commuter rail system will not support a business all by itself, it will add to many busi- nesses that are supported by other factors. • Station Neighborhood Development Guidelines 4 Northstar Corridor Development Authority Introduction • Purpose of the Guidelines The Station Neighborhood Development Principles and Guidelines have been prepared to help local governments maxi- mize land development opportunities around the proposed rail transit stations in the Northstar Corridor. They may be used to formulate detailed Station Neighborhood plans, review land development or rezoning applications, and prepare zoning ordi- nance amendments. Users of this document may include city planners and engineers, members of City Councils and Planning Commissions, land developers,and citizens. The Guidelines are intended to: • Broaden the region's understanding of the relationship between land use and rail transit. • Help create compact, attractive and sustainable development in the Northstar Corridor. • Provide a practical set of tools that can be used to create • walkable, compact mixed- and multi-use communities. • Promote transit system ridership by increasing the share of regional development attracted to the vicinity of the stations. • Station Neighborhood Development Guidelines 5 Northstar Corridor Development Authority Introduction • How to Use This Handbook The following chart offers a step-by-step path through the Principles and Guidelines. 2 13 Handbook Identify Identify Your Select Select Users Your Type of Techniques Implementation Goals Station for Creating Tools Neighborhood Transit-Friendly Conditions •Appointed or elect- •Develop a station or • Urban Center • Land use pattern • Planning and land ed official , • transit area plan use tools •Town center • Development • Community group • Update a zoning intensity • Financial incen- • ordinance •Suburban residentialrives •Planning or design • Station visual envi • - professional •• Plan development ••Suburban multiple-_ ronment •Non-financial • near a commuter use incentives •Business interest or rail station • Pedestrian and land developer bicycle access • • Find transit-friendly • Government agency`, guidelines for • Auto and bus reviewing develop- access • • Institution ment proposals • Others • Find implemen- tation techniques to reinforce transit-friendly planning 111 Station Neighborhood Development Guidelines 6 Northstar Corridor Development Authority Principles of Station Neighborhood Development •• . . • Principles of Station Neighborhood Development • There are three central principles of transit Station Neighborhood development. They are summarized below and form the outline for this document. These principles are intend- ed to help boost Northstar commuter rail system ridership,lever- age private investment and build a sense of community. All of them work to move away from the currently predominant auto- oriented,low-density single land use pattern to one that is more compact and more oriented to the transit user,pedestrian and bicyclist. Principle 1: Mixed and Compact Land Use Locate witltin easy walking distance of the station a compact mixture of land uses that generates ridership,promotes pedestrian activity and • reduces dependence on the automobile. Principle 2: Enhanced Station Neighborhood ~" Environment 4 Create a station environment that is attractive, safe and orderly and creates an identifiable civic space for public activities. • Principle 3: Supportive Access Patterns Provide multiple and direct street connections to the transit station and its immediate vicinity for pedestrians, bicyclists, motorists and • feeder buses. 4 .: - • Station Neighborhood Development Guidelines 7 Northstar Corridor Development Authority Principles of Station Neighborhood Development Characteristics of Successful Transit Station • Neighborhoods Although there are different opportunities and constraints among Station Neighborhoods, the following characteristics are found in most successful transit station neighborhoods. rnj_ 1. Compact Development �L �- T 1 • Makes walking and biking convenient options •Allows land uses to support one another • Enhances pedestrian environment and transit ridership _I� IF' • Consolidates trips 2. Varied and Complementary Land Uses 4.E71, mo i • Makes the transit trip more convenient TSc— --L • Supports financial feasibility '- t__ • Makes the Station Neighborhood more interesting and lively •When civic components are included,builds a community focal • point F---I 3. Mixed-Use Development • Supports increased densities Qr—t—t „ • Provides a transition to adjacent neighborhoods D D p p Q • Encourages walking and bicycling O el G Q o • Integrates mutually compatible land uses A n atm a • Extends the hours of activity • May enhance market and financial feasibility 4. Access by All Modes of Transportation ,;;�, , . • Promotes transit ridership • Efficiently connects the Transit Core to surrounding areas u `f • Increases transportation efficiency • Links uses and activities • Station Neighborhood Development Guidelines 8 Northstar Corridor Development Authority Principles of Station Neighborhood Development • 5. A Pleasant Pedestrian Environment • Makes increased density more acceptable .• ' - • Encourages street activity and walking • Enhances flow toward transit . • Provides a safe and secure walking experience _ 6. A Safe and Attractive Bicycling Environment • Promotes an alternative to driving • Helps achieve concentrated development • Provides a low-cost, non-polluting alternative to the auto 7. On-Street Parking ,,,�•, i ; • Increases the safetyof pedestrians by establishing a buffer ,I;�I�► '1.11 1 I between cars and pedestrians i t 1 • Provides convenient parking 13 .4 • Reduces parking lot requirements 8. Structured Parking • • Decreases the amount of land required for parking - 9 • Makes parking more convenient, closer to the buildings to ti • Improves the pedestrian environmentitM ,. • Allows for land redevelopment. 1'104 ��i''�; 2: It may also be useful to think of these station neighborhood characteristics as a compact arrangement of four basic elements: F� • Residential and/or commercial buildings . • Civic buildings • Pedestrian-friendly streetscape C • Circulation and parking 0„„,44{„,„:7' •W`4Abr. • .row 4'...��� Station Neighborhood Development Guidelines 9 Northstar Corridor Development Authority Guidelines for Station Neighborhood Development ' • Guidelines for Station Neighborhood Development Organized under each of the three station neighborhood princi- ples, this chapter presents guidelines for the development of sta- tion neighborhoods. Principle 1 : Mixed and Compact Land Use Locate within easy walking distance of the station a compact mixture of land uses that generates ridership,promotes pedestrian activity and reduces dependence on the automobile. The guidelines of this section address: • Land Use by Station Zone Type • • Gradient of Land Use Intensity • Minimum Land Development Density Land Use by Station Zone and Type • Complementary Mixture of Land Uses: Locate near the sta- tion a mixture of commercial,residential and public land uses at a scale and density appropriate for the type of Station Neighborhood to generate system ridership,produce a high level of pedestrian activity and create a viable community or neigh- borhood center. Seek to include elements that build a sense of community,such as child day care,libraries,meeting halls,and police,fire and postal stations. Plan and zone land near Station Neighborhoods according to Tables 2 and 3,below. •Table 2 describes generally the desired types of land use by type of Station Neighborhood (Urban Center, etc.) and by station • zone (Core, Neighborhood and Support Area). Station Neighborhood Development Guidelines 15 Northstar Corridor Development Authority Guidelines for Station Neighborhood Development •Table 3 is more specific and indicates which types of land use best complement each other and the 411 type of transit station environment in which they are located. Table 2 Desired Land Uses by Ring and Type of Station Neighborhood Type of Ring Station Neighborhood Transit Core Transit Neighborhood Transit Support Area • Urban •Retail and service businesses; •Private and government offices; •Offices;retail businesses;mid or Center offices;high-density housing; retail and service businesses; high-density attached housing; Examples: public and community uses; mid/high-density attached schools;light industry structured and surface parking. housing;public and community (high floor-area ratio). Minneapolis , uses. Downtown SL Cloud Downtown Minneapolis Northeast Town •Community-oriented retail and • Mid-density attached and • Mid-density detached housing. Center service business;offices, detached housing. Examples: mid/high-density attached hous- • ing;public and community Rice park-and-ride lots. Clear Lake Anoka Suburban •Retail and service businesses; • Mid-density attached and •Mid-density detached housing; Multi-Use mid and high-density offices; detached housing;mid-density larger.shopping centers; Examples: mid and high-density attached offices,and small retail centers neighborhood parks;schools. housing;park-and-ride lots.i• with shared parking. SL Cloud East ..i ?`,..1, ' .0%,.f Becker Big Lake Elk River Ramsey RA. *le Foley BMrci R ky Housing'I- Office, Mixed-Use r ga lot Station Neighborhood Development Guidelines 16 Northstar Corridor Development Authority Guidelines for Station Neighborhood Development Table 3 iLand Use and Transit Area Compatibility • Compatible as a Primary Use O Compatible as a Supporting Use Type of Station Neighborhood N C Not Compatible Urban Town Suburban Mixed-Use Center Multi-Use Land Use Center Center Housing:0—4 homes per acre NC NC NC Housing:5— 15 homes per acre 0 • • Housing:16+ homes per acre • • • Office(Floor Area Ratio< 0.50) N C • • Office(Floor Area Ratio>0.50) • N C • Medical office • • • Convenience retail 0 0: 0 Convenience food restaurant 0 0 0 Restaurant 0 0 0 Tavern 0 • 0 • Auto repair N C O ! O Bank (without drive-through) 0 • • Barber/beauty shop 0 O; O Local shopping center N C NC • Regional shopping centerN C NC 0 Health club 0 0 0 Hotel 0 • • Movie theater(shared parking) 0 0 0 Manufacturing:SO employees Acre= Research&development facility:50 employees/acre 0 NC • Warehousing N C N C N C Cultural facility 0 • • Child day care O O O College or vo-tech school • • • Elementary middle or high school 0 0 0 Civic plaza or park 0 0 0 Neighborhood park(3—6 acres) N C, ,: O (Not in Core) (Not in Core) Community park (7—25 acres) N C NC NC Station Neighborhood Development Guidelines 17 Northstar Corridor Development Authority Guidelines for Station Neighborhood Development Gradient of Land Use Intensity III Observe the following generalized gradient of land use intensity. Increase the permitted intensity and mixture of land uses near the transit station but decrease it with distance from the station. Depart from the practice of large-lot, auto-dependent, dispersed development and move toward a more concentrated,pedestrian- friendly pattern of development near stations. Transit Support Area Transit Core: Higher-density mixed land use, retail Trend. Neighborhood and service businesses, high-density housing, and compatible community / facilities. l 'n'M,k Tranak Gore • (1:: ,.....-0,14.- 1 Transit Neighborhood:. . Medium-density housing ( mixture ;s Iof<50'-lot singles, duplexes, town- houses and apartments), and retail : sis5e5serving the '.Walt1,40 .. cal market. Transit Support Area: Detached housing on parcels slightly larger than in the Transit • Neighborhood, townhouses, apart- ments,retail and service businesses serving the local market. Minimum Residential and Non-Residential Intensities Try to achieve the minimum intensities of residential and non- residential development indicated in Table 4.This table recog- nizes that different intensities of development for the Transit Core or the Transit Neighborhood may be appropriate for differ- ent stations. 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UK Or TIE.{PATE a MrtP,£S°A %ayPROJECT °"n •R Nr E6 M° PREU A�r�IY'°I PLAT y x-rr --- h_ currom 1611 CO.HIGHWAY 10 NE MINNEAPOLIS,MINNESOTA 66432 APPRO.,' roava PASSEPHONE(763)780-4100 FAX(763)780-6200 City of Elk River,Minnesota EMAIL-passaegoidengatenet RECORD DRAWING