Memosof
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River MEMORANDUM
TO: Mayor and City Council
FROM: Steven B. Ach, City Planner
DATE: November 27, 1995
SUBJECT: 1995 Comprehensive Plan
Issue
Consider adopting the 1995 Comprehensive Plan.
Overview
On March 23, 1994, the City Council and Planning Commission held a joint
meeting to discuss updating the Comprehensive Plan. Following that
meeting, the City Council appointed a 15-member Steering Committee to
review the plan, conduct public meetings, and make a recommendation. Over
the past year and a half, the Steering Committee has held 20 public meetings
to discuss each section of the Comprehensive Plan and relating issues.
On September 21, 1995, the Steering Committee considered a draft of the
Comprehensive Plan and made a recommendation to the Planning
Commission and City Council to adopt the plan, based on various changes.
Following the Steering Committee's review and recommendation, the plan
was submitted to the Planning Commission as recommended by the Steering
Committee. Subsequently, the Planning Commission held a public hearing
on October 26, 1995, to review the proposed plan and receive public input.
After a lengthy meeting, the Planning Commission recommended approving
the Comprehensive Plan.
The plan as presented to the City Council this evening is a document which
reflects the Planning Commission's recommendations. I mention this
because in some instances, the Planning Commission's recommendation is
different than the Steering Committee. One example of this is the urban
service area, as discussed later in this memo.
13065 Orono Parkway • P.O. Box 490 • Elk River, MN 55330 • (612) 441-7420 • Fax: (612) 441-7425
Comprehensive Plan
November 27, 1995
Transportation/Parks and Open Space
Page 2
The Planning Commission briefly discussed these two sections of the
Comprehensive Plan; however, deferred a recommendation to a later date.
Given some of the issues associated with these two sections, the Planning
Commission would like to have a separate public hearing at a later date to
discuss these two topics. It is possible that the Planning Commission could
hold a public hearing sometime in January followed by the City Council
doing the same in February. Following the public hearings and the Council
taking action, the two sections could then be included as part of the
Comprehensive Plan.
Summary of Comprehensive Plan
The Comprehensive Plan is obviously a lengthy document containing
numerous maps, general information, and guidelines for future growth of the
nmunity. The process over the past year and one-half was to "update" the
iprehensive Plan and not create a "new" plan. Therefore, some of the
background or factual information included in the plan will not change other
than being updated. On the other hand, some changes, such as the urban
service area, are proposed to be amended due to the changing times and
conditions. To assist the City Council in the review of the Comprehensive
Plan, a summary of the major issues and/or changes associated with each
section are as follows:
I. Growth Management
This section basically discusses the challenges facing Elk River and how the
Comprehensive Plan is a tool to address these identified challenges in a
comprehensive and long term manner. *No major changes have been made
to this section.
II. Background Information
This section discusses Elk River in terms of its geographic location and
historical perspective. Also included is demographic information acquired
from the current census data and other factual data on record with the City.
*This section has been updated with current census and building
information. The "development constraints" information has been modified
to reflect the existing conditions based on development that has occurred
since the plan was originally adopted in 1988.
s:council:compplan
Comprehensive Plan
November 27, 1995
III. Utilities
Page 3
*The major issue relates to expanding the urban service boundary. This
issue is one of the areas that the Steering Committee and Planning
Commission had a different recommendation. The Steering Committee
recommended a much smaller area, while the Planning Commission chose a
larger urban service area to accommodate urban growth for many years. It
should be emphasized that the proposed urban service boundary is the
"ultimate" build -out. In other words, much like development of the western
area, the ultimate service boundary will be developed in several phases over
as many years as the City Council desires.
IV. Residential
This section had three major issues:
(1) Ten acre minimum
(2) Lot sizes in urban district
(3) Multi -family residential
The Planning Commission recommended maintaining the 10 acre minimum
lot size in the A-1 (Agricultural) zoning district. There was also much
discussion by the Steering Committee and Planning Commission regarding
"clustering" of residential lots and possibly providing incentives as far as
increased density to achieve this clustering concept. The Steering Committee
recommended specific guidelines to allow an increased density if clustering
was used; however, the Planning Commission felt the issue needed further
discussion and therefore, adopted a "policy" that clustering is a concept the
City should review and possibly develop an ordinance.
Secondly, it was recommended that lot sizes in the urban service area be
reviewed and increased in size. It was felt that this increase in lot size could
most likely occur in areas that offered natural amenities to attract larger,
more expensive homes.
Lastly, the Land Use Plan Map was amended in several areas to eliminate
additional multi -family development. The City's housing stock is currently
comprised of 22% multi -family and both the Steering Committee and
Planning Commission agreed that this percentage needs to be reduced.
IV. Commercial Plan
The following issues were discussed:
(1) Central Business District
(2) Commercial along Highway 169 between 193rd and 197th
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Comprehensive Plan
November 27, 1995
Page 4
(3) Neighborhood Commercial
The downtown received a lot of attention during the Steering Committee's
public meetings. Although the Comprehensive Plan does not address specific
issues facing the downtown, it was recommended by both the Steering
;_,4mittee and Planning Commission that a "master plan" be prepared. This
master plan will focus on the downtown and provide recommendations and
plans to foster economic stability to this vital part of the community.
The area between 193rd and 197th on the east side of Highway 169 was the
focus of an extensive land use discussion. The Steering Committee reversed
an earlier recommendation and recommended commercial land use be
extended up to 197th Avenue. The Planning Commission was slightly more
cautious and recommended a land use mix of Medium Density Residential
and Highway Business. Staff believes that the opportunity exists to extend
commercial further north than its present location; however, whether it is
tended all the way to 197th needs to be further examined.
The Planning Commission is currently reviewing an ordinance to establish a
Neighborhood Commercial zoning distinct. This district would provide for
intermediate commercial uses in areas where Highway Commercial is not
compatible with surrounding land uses. The neighborhood commercial
concept is currently part of the 1988 plan and was once again recommended.
VI. Industrial
One of the goals in updating the Comprehensive Plan was to increase
industrial opportunities throughout the community. The plan recommends
expanding the western business park between Waco Street and Joplin by
including the county fairground property. It also identifies creating a Light
Industrial area at the intersection of County Road No. 12 and 13. This area
is relatively close to the existing water and sewer facilities and could be
served in the near future.
Lastly, the East Highway 10 corridor also was recommended to have an
increased industrial area along 165th Avenue, as well as a business park
along the southwest side of Highway 10. These two areas would provide
additional industrial opportunities later on in the future, as the existing
industrial areas develop.
VII. Parks and Open Space
*One of the issues associated with this section of the plan was to examine
expansion opportunities for Orono Park.
s:council:compplan
Comprehensive Plan
November 27, 1995
Page 5
As mentioned earlier in the memo, this section of the plan will receive
additional review by the Planning Commission and City Council at future
public hearings.
VII. Transportation
*The main issue associated with the transportation plan has to do with
identifying future corridors for road improvements. A large majority of the
discussion centered en the east -west corridor, leaving little time to the
balance of the transportation plan. During the future public hearing to
review this section, staff is hopeful that the plan can be presented in its
entirety and discussed in a comprehensive manner.
IX. Implementation
*Major changes associated with this section had to do with the addition of all
of the land use designations and zoning designations, along with a brief
description of each of the districts. This section has also been modified to
include a brief description of economic development and the role of the
Economic Development Authority and Housing and Redevelopment
Authority.
Recommendation
It is recommended that the City Council approve the 1995 Comprehensive
Plan, along with all of the attachments and maps, except for Section No.
VII., relating to Parks and Open Spaces, and Section No. VII. - the
transportation element. These two sections will be presented at a future
public hearing and incorporated as part of the Comprehensive Plan upon
approval by the City Council.
s:council:compplan
I
Ver MEMORANDUM
Gl TO: Planning Commission
FROM: Steven B. Ach, City Planner � 41-,
DATE: April 22, 1996
SUBJECT: Comprehensive Plan
Attached is the Comprehensive Plan as adopted by the Council on December
18, 1995. At this time, the plan does not include a transportation or parks
and open space element. The Council is currently in the process of reviewing
the transportation and master park and recreation plan. Upon the Council's
adoption of tilese plans, the respective elements will be incorporated into the
Comprehensive Plan.
The Comprehensive Plan is by a no means a document cast in concrete;
therefore, it has been placed in a 3-ring binder to easily accept adjustments
as deemed fit by the City Council. With the understanding the
Comprehensive Plan can be amended should not dilute its intent as a
framework to guide development and growth of the community.
If the Planning Commission has any comments or questions regarding the
Comprehensive Plan, please feel free to contact me.
s:\pIanning\pc\compplan
13065 Orono Parkway • P.O. Box 490 • Elk River, MN 55330 • (612) 441-7420 • Fax: (612) 441-7425
ver
ITEM NO. 7.1.
MEMORANDUM
TO: Mayor and City Council
FROM: Steven B. Ach, City Planner��
DATE: December 18, 1995
SUBJECT: Consider Adopting the Urban Service
Boundary Map, Land Use Plan
Map and Corrections to
Comprehensive Plan
Attachments
• Urban Service Map
• Land Use Plan Map
• Comprehensive Plan Draft #5
Overview
The enclosed maps have been revised in accordance with the discussion that
occurred at last Monday's meeting. A final draft of the Comprehensive Plan
with the necessary corrections based on the changes in the various maps has
also been included.
The following is a summary of the changes that have been made in all three
documents:
Urban Service Boundary Man
• The map has been modified by removing an area in the shape of the state
of Nevada. The area is bordered by County Road 12 on the north,
Fillmore Street on the east, 165th on the south, and Tyler Street
alignment on the west.
• In addition, the area between County Road 12 and 13 and east of
Cleveland Street has also been removed.
13065 Orono Parkway • P.O. Box 490 • Elk River, MN 55330 • (612) 441-7420 • Fax: (612) 441-7425
Comprehensive Plan
December 18, 1995
Land Use Plan Mau
Page 2
The area north of Sax Foods to 197th Avenue has been amended to a land
use designation of HB (highway Business). The depth of this area is 850
feet measured from the east right-of-way of Highway 169.
The industrial land use at the intersection of County Road 12 and 13 has
been modified per Mr. Deschene's request. The residential areas within
the urban service area have a land use designation of MR (Medium
Density Residential) and the areas outside the urban service boundary
will maintain the land use designation of LR (Low Density Residential).
Comprehensive Plan
• Maps have been changed (i.e., urban service boundary map, land use plan
map, residential zone).
• Page 34 (bottom) - As per the Planning Commission's request, a
paragraph has been included regarding cluster development.
• Page 44 (bottom) -A paragraph has been included regarding the Council's
decision to extend commercial land use north of Sax Foods.
• Page 55 - Map has been corrected to included Mr. Deschene's property as
industrial.
Requested Action
The City Council is asked to consider the following documents as presented
or as modified by the Council:
1. Consider the Urban Service Area Map
2. Consider the Comprehensive Land Use Plan Map
3. Consider the changes made to the Comprehensive Plan and have those
changes incorporated into the Plan as previously approved by the City
Council.
s:con eil:compla 2
ver MEMORANDUM�I
TO: Steering Committee
FROM: Steven B. Ach, City Planner. --
DATE: October 26, 1995
SUBJECT: Comprehensive Plan
On Thursday night, the Planning Commission will be asked to consider the
1995 Comprehensive Plan. The text and maps of the plan are being
presented to the Planning Commission as recommended by the Steering
Committee. In addition to the Steering Committee recommendations, staff
will also be making some recommendations to the Planning Commission for
their consideration. These staff recommendations will primarily be reflected
on the maps and a few changes to the text.
At the Planning Commission public hearing Tuesday night, the maps for the
Comprehensive Plan will be distributed. Each Planning Commission
member will receive a full size map of the following:
• The proposed Urban Service Area
• Proposed Zoning Map
• Proposed Land Use Map
The remaining maps will be at a size of 11" x 17" to be inserted into the
Comprehensive Plan.
As discussed at the Planning Commission's workshop, the Transportation
Plan and Park & Rec Plan will not be discussed Thursday night. However,
the Planning Commission will be asked to consider the goals and policies of
each of these plans as they have been included in the text of the
Comprehensive Plan.
Furthermore, at the meeting Thursday night, staff will have a draft
Transportation Plan and draft Park Plan available for interested residents to
review. Although these plans will not be discussed, having the maps
available should give the residents some of idea of what will be presented in
13065 Orono Parkway • P.O. Box 490 • Elk River, MN 55330 • (612) 441-7420 • Fax: (612) 441-7425
a couple of months when these plans are presented to the Planning
Commission and City Council.
In conclusion, if the Planning Commission wishes to discuss the
Comprehensive Plan at Tuesday's public hearing, I would be happy to
answer any questions and provide additional information. I hope to get a
memo together outlining staffs recommendation prior to Thursday's meeting.
Once again, if any Commission members have questions or comments, please
call me at 441-4902.
s\planning\steering\ 1026memc
CITY OF ELK RIPER
NOTICE OF PUBLIC HEgRING
The Elk River City Council will conduct a public hearing on Monday, November 27,
1995, at 7 p.m., at Salk Junior High School commons area, 11970 Highland Road,
to consider the 1995 Comprehensive Plan for the City of Elk River.
All interested persons are invited to attend the public hearing to express their
questions and/or comments. Hearing impaired persons planning to attend who need
an interpreter or other persons with disabilities who require auxiliary aids should
contact Sandy Thackeray, City Clerk, at 441-7420 by November 22, 1995. If you
would like information regarding the above -described public hearing notice, please
call Elk River City Hall at 441-4902.
Steven B. Ach
City Planner
s:planning:phn-comp
ver MEMORANDUM
TO: Mayor and City Council
FROM: Steven B. Ach, City Planner
DATE: December 11, 1995
SUBJECT: Comprehensive Plan
I. Urban Service Boundary
At the last meeting to discuss the Comprehensive Plan, a considerable
amount of discussion centered on expanding the urban service area.
Understandably, residents and business owners alike were all concerned
about the cost of utilities and how individual property owners would be
impacted by an expanded urban service area. Unfortunately, the exact costs
associated with extending trunk utility has not been determined at this time...
Preliminary analysis has indicated the costs associated with extending
utilities could be supported by the affected properties; however, this will need
to be further researched and confirmed prior to a project taking place. If it is
determined at the time of a project that the utilities cannot be extended in a
cost effective manner, the likelihood of the project taking place at that time
will most likely be diminished.
At the last Council meeting it appeared as though several residents were
under the impression that if their property was included in the urban service
area, they would be immediately affected and assessed for some future utility
project. Until there is a project, property owners will not be affected by an
expanded urban service area. Furthermore, generally those residents
directly benefiting from a utility extension will be assessed, not the entire
urban service area. At Monday night's meeting, I will present to the City
Council some scenarios explaining how utilities could be extended throughout
this eastern area over time.
Once again, it should be emphasized that the urban service area is projected
to accommodate growth for many years. Historically, the rate at which
utilities have been extended is a direct result of requests from developers.
Generally speaking, if the property owners are not petitioning to have
utilities extended, the Council has had no reason to proceed with a project.
(There has been and will continue to be exceptions to this scenario.) It is
13065 Orono Parkway • P.O. Box 490 • Elk River, MN 55330 • (612) 441-7420 • Fax: (612) 441-7425
Comprehensive Plan Page 2
December 11, 1995
envisioned that the County Road 12 and 13 corridors would develop over time
at the request of landowners (developers). This pattern of growth will be very
similar to the western area of the City as well as the Meadowvale Heights,
Nord and Brady property.
II. Why Should There Be An Expanded Urban Service Area?
First of all, if the City Council does not envision there ever being the need to
expand the City's urban limits, the boundary does not have to be changed. If
the urban service boundary is not adjusted to accommodate long term growth
at an urban density, the result will be a large "belt" around the City's urban
core of 2 to 2-1/2 acre lots. Again, if this is the pattern of growth the City
Council desires, there is no need to expand the urban district.
However, as presented to the Steering Committee and Planning Commission,
there are some downsides to this low density pattern of development. It has
been documented in several studies and various articles that this pattern of
growth is "inefficient" and burdensome on the City' ability to provide services
and utilities in a cost effective manner. This is not to suggest that the entire
City of Elk River needs to develop at an urban density. What I would
encourage the Council to consider is trying to achieve a land use and density
mix that will benefit the City as a whole along all lines of concern including
property taxes, commercial opportunities, providing employment
opportunities and maintaining the sense of community within the City, etc.
If the urban service area is not expanded, commercial and industrial areas
could still be developed; however, based on requirements set forth in the
State Building and Fire Codes, there will be restrictions on the type and size
of businesses that can be developed. For example, it may not be economically
feasible for an industrial or commercial company to construct a large facility
which is required to be sprinkled. The cost involved to provide an on -site
system to meet the sprinkling demands may be too costly or unacceptable to
the City's fire chief. Therefore, the benefit of providing city water and sewer
for commercial and industrial development allows a maximum use of the
property, does not restrict the size or type of use, and provides greater
environmental protection for businesses that may misuse their septic systems
by disposing of materials improperly.
Another benefit to identifying the ultimate service area at this time is to
inform current and new residents of the City's plans to manage growth. Elk
River will continue to have growth pressures applied by residential,
commercial and industrial developers. The challenge before the City Council
is to manage this inevitable growth in a cost effective manner while
maintaining the characteristics unique to Elk River. With these pressures
and constantly changing conditions, it is important a long range plan be
adopted so the City can plan for development and not react.
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Comprehensive Plan
December 11, 1995
Page 3
III. What Are the Costs Associated With Development?
Attached to this memo are summaries from reports along with articles that
discuss the costs and revenues associated with development. The following
sources of information are included for the Council's review:
• Executive Summary - A summary of a report by Resource Management
Consultants, Inc., entitled: "Development in Wright County - The
Revenue/Cost Relationship";
• Article by Lee Ronning of the Land Stewardship Project - "Farm Land's
Top Yield Isn't Residential Taxes";
• Excerpt from a report by the Environmental Quality Board, entitled: "A
Question of Balance and Managing Growth in the Environment";
• Excerpt from a book by Randall Arendt, entitled: " Rural By Design";
• An Executive Summary along with Impact Analysis for each zoning
district from a study done by the City of Lakeville, entitled: "Growth
Management Strategies for the City of Lakeville".
In summarizing these articles, the following points should be highlighted:
• The costs of growth for low density development are higher than growth
at a higher density.
• Quote: "It is fiscally sound to concentrate growth around areas with
existing infrastructure and discourage growth on large lots and farming
areas.
• Relatively high density development close to existing urban infrastructure
provides less expense locally and to the state over the long term.
Residential projects that consume large amounts of land often costs
communities more than they give back in property taxes.
• The small clusters of one and two acre residential lots interspersed with
agricultural areas have contributed to uncontrolled development and
imposes a significant financial and environmental problem for Otsego.
• Large lot residential zoning, often enacted by communities that would like
to preserve open space such as wood land and farm land is to a large part
responsible for the high levels of land consumption experienced by
communities.
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Comprehensive Plan
December 11, 1995
Page 4
• Studies have shown that the net public cost resulting from low density or
"sprawl" development are considerably greater than those resulting from
higher density or "cluster" development for the same number of dwelling
units. Put simply, it costs more to run school buses and emergency
vehicles, to repair roads, and to collect garbage when homes are spread
out over more miles of roads than when houses are located more closely
together as in a typical 19th century town.
• For every $1.00 of revenue collected from:
- residential land, $1.25 is spent on services;
- industrial and commercial land, $.19 is spent on services.
• The net public costs were approximately three times higher ($2,200.00 per
unit) where the density was one unit per 5 acres than where the density
was 4.5 units per acre ($700.00 per unit).
• Lower valued homes tend to have a negative fiscal impact.
• Higher valued homes tend to have a positive fiscal impact.
• The higher the density of housing the more return; however, there are
diminishing returns, after a certain point, in market value and density.
• Twin homes, quads, townhomes and high value homes provide the best
fiscal investments in housing.
• Scattered development puts an enormous strain on the City's operating
capital budgets and negatively impacts commercial areas trying to
establish service areas.
If the City Council is interested in reading any of these reports in their
entirety, I'll be happy to provide the Council a complete copy of those reports.
IV. What Type of Development Guidelines Will There Be For Property
Within The Urban Service Area?
One of the fundamental elements of the Comprehensive Plan is to manage
growth in an orderly manner and to encourage growth from the central city
outward. In order to allow this growth to occur along with the extension of
utilities, certain growth control policies will have to be adopted for property
within the urban service area to allow the efficient extension of utilities.
Although no specific guidelines have been adopted at this time, future
ordinances will have to address the minimum lot size which property can be
subdivided without water and sewer. For example, it may be determined
that the minimum lot size prior to receiving water and sewer will be 10 acres.
Generally speaking, the larger the lot sizes, the greater the flexibility
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Comprehensive Plan
December 11, 1995
Page 5
property owners will have to subdivide their land when water and sewer is
available. This in turn creates a greater efficiency for the property owner to
help offset the costs of city water and sewer. Furthermore, the larger the lot
sizes, the easier it becomes to extend utilities in an orderly fashion without
involving numerous landowners who may not be interested in receiving
utilities at that time.
Several residents at the last Comprehensive Plan meeting expressed concern
about not being able to do "anything" with their property until sewer and
water is made available. Within the areas that are designated for residential
development, property owners will be able to subdivide their land to the
minimum lot size, whichever that may be, and utilize their property as a
residential use and other uses associated with that particular zoning
designation. On the other hand, the commercial and industrial districts are
not as clearly defined and will need further discussion to formulate some
reasonable guidelines.
V. Can Overlay Plats Be Utilized In Subdivisions Prior To Sewer And
Water?
The general concept behind overlay plats is to allow the subdivision of land
into slightly larger lots which can then be re -subdivided in the future when
water and sewer is made available. I believe this particular concept works
much better in rural areas that are envisioned to stay rural where the
minimum lot size may be larger today than it will be 10 or 15 years down the
road. Some of the problems associated with this concept within future urban
districts include the following:
The parties (Council, developers, staff) who were originally involved in
establishing the overlay district are often not a part of the actual
implementation when sewer and water is finally made available. This
leaves confusion for future councils and staff and a lot of flexibility for
debate on the intent of the overlay plat.
• As overlay plats develop with numerous homes and property owners that
have invested in well and septic systems, there is the likelihood that even
though there is an overlay plat that allows further subdivision, the
property owners may flat out have no interest in utilities. This simply
sets up a scenario where, although it has been planned to serve an area,
the property owners enjoy their slightly larger lot and do not have any
interest in the sewer and water.
• The use of overlay plats within the future urban service district may
become more predominant than one or two isolated cases. Therefore,
further straining the efficient extension of public utilities, and possibly
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Comprehensive Plan
December 11, 1995
Page 6
working counter -productively to manage and slow growth from the central
core of the City.
VI. Restricted Areas For Development
At Monday night's meeting, a brief presentation will be made, highlighting
the wetland, woodland and floodplain areas that are scattered throughout the
eastern area of Elk River. These natural areas may create some challenges
for extending water and sewer; however, will also act as natural amenities
for residential development. There are maps available in the Comprehensive
Plan that highlight these restricted areas. I will be providing some colored
maps at Monday night's meeting to facilitate in the discussion on this issue.
VII. Cluster Development
Attached is some information on cluster development. Cluster development
is a subdivision technique the City should consider because of the benefits it
has to offer. The illustrations included as part of the attached information
gives a straightforward explanation to the idea behind "clustering". If the
Council has any further questions on this concept, I will be happy to answer
them at Monday night's meeting.
It should be made clear the Council will not be asked Monday night to adopt
a specific clustering concept. The Comprehensive Plan suggests "exploring
the clustering concept" and determine through an ordinance amendment the
specific elements involved to allow clustering development. This ordinance
amendment will be brought before the Planning Commission and City
Council at a later date.
VIII. Land Use Plan
Monday night, the City Council will be asked to adopt the Comprehensive
Land Use Plan which sets forth the long range land use of property
throughout the City. As discussed later in this memo under "Necessary
Actions", at a later meeting rezonings will have to be brought forward to the
City Council so that the land use plan and zoning map are consistent with
each other.
As a follow-up at the last Council meeting, Mr. Hetland made it known that
his property at 165th and Highway 10 had the land use changed to Light
Industrial. Staff has researched this and Mr. Hetland is correct that land use
has been changed; therefore, the land use plan map will be changed
accordingly to reflect this previously approved land use plan amendment.
IX. Necessary Actions
Once the Comprehensive Plan is adopted, there will be several "necessary
actions" that need to take place to implement the Comprehensive Plan.
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Comprehensive Plan
December 11, 1995
Page 7
These necessary actions are listed at the end of each section of the Plan (i.e.,
residential, commercial, industrial, utilities). Some of the immediate actions
the Council can expect to discuss in the next two to three months include:
• Hold a public hearing on the Park and Recreation Plan
• Hold a public hearing on the Transportation Plan
• Hold a public hearing to consider rezonings to comply with the
Comprehensive Land Use Plan
• Review development standards for properties within the urban service
district (i.e., lot size, interim uses).
• Consider "cluster" development ordinance
• Initiate a focus study on the downtown area
• Study the commercial corridor between 193rd and 197th.
Implementation of the Comprehensive Plan will be an ongoing effort. As
mentioned at the beginning of this process, the Plan is not static. It will have
to be amended occasionally as the times and conditions change within the
City.
In closing, if the City Council has any questions prior to Monday night's
meeting, please feel free to contact me at 441-4902.
s:council:Complan
Ver MEMORANDUM
TO:
FROM:
DATE:
SUBJECT:
Issue
Mayor and City Council
Steven B. Ach, City Planner
November 27, 1995
1995 Comprehensive Plan
Consider adopting the 1995 Comprehensive Plan.
Overview
On March 23, 1994, the City Council and Planning Commission held a joint
meeting to discuss updating the Comprehensive Plan. Following that
meeting, the City Council appointed a 15-member Steering Committee to
review the plan, conduct public meetings, and make a recommendation. Ovex
the past year and a half, the Steering Committee has held 20 public meetings
to discuss each section of the Comprehensive Plan and relating issues.
On September 21, 1995, the Steering Committee considered a draft of the
Comprehensive Plan and made a recommendation to the Planning
Commission and City Council to adopt the plan, based on various changes.
Following the Steering Committee's review and recommendation, the plan
was submitted to the Planning Commission as recommended by the Steering
Committee. Subsequently, the Planning Commission held a public hearing
on October 26, 1995, to review the proposed plan and receive public input.
After a lengthy meeting, the Planning Commission recommended approving
the Comprehensive Plan.
The plan as presented to the City Council this evening is a document which
reflects the Planning Commission's recommendations. I mention this
because in some instances, the Planning Commission's recommendation is
different than the Steering Committee. One example of this is the urban
service area, as discussed later in this memo.
13065 Orono Parkway • P.O. Box 490 • Elk River, MN 55330 • (612) 441-7420 • Fax: (612) 441-7425
Comprehensive Plan
November 27, 1995
Transportation/Parks and Open Space
Page 2
The Planning Commission briefly discussed these two sections of the
Comprehensive Plan; however, deferred a recommendation to a later date.
Given some of the issues associated with these two sections, the Planning
Commission would like to have a separate public hearing at a later date to
discuss these two topics. It is possible that the Planning Commission could
hold a public hearing sometime in January followed by the City Council
doing the same in February. Following the public hearings and the Council
taking action, the two sections could then be included as part of the
Comprehensive Plan.
Summary of Comprehensive Plan
The Comprehensive Plan is obviously a lengthy document containing
numerous maps, general information, and guidelines for future growth of the
community. The process over the past year and one-half was to "update" the
Comprehensive Plan and not create a "new" plan. Therefore, some of the
background or factual information included in the plan will not change other
than being updated. On the other hand, some changes, such as the urban
service area, are proposed to be amended due to the changing times and
conditions. To assist the City Council in the review of the Comprehensive
Plan, a summary of the major issues and/or changes associated with each
section are as follows:
I. Growth Management
This section basically discusses the challenges facing Elk River and how the
Comprehensive Plan is a tool to address these identified challenges in a
comprehensive and long term manner. *No major changes have been made
to this section.
II. Background Information
This section discusses Elk River in terms of its geographic location and
historical perspective. Also included is demographic information acquired
from the current census data and other factual data on record with the City.
*This section has been updated with current census and building
information. The "development constraints" information has been modified
to reflect the existing conditions based on development that has occurred
since the plan was originally adopted in 1988.
s:council:compplan
Comprehensive Plan
November 27, 1995
III. Utilities
Page 3
*The major issue relates to expanding the urban service boundary. This
issue is one of the areas that the Steering Committee and Planning
Commission had a different recommendation. The Steering Committee
recommended a much smaller area, while the Planning Commission chose a
larger urban service area to accommodate urban growth for many years. It
should be emphasized that the proposed urban service boundary is the
"ultimate" build -out. In other words, much like development of the western
area, the ultimate service boundary will be developed in several phases over
as many years as the City Council desires.
IV. Residential
This section had three major issues:
(1) Ten acre minimum
(2) Lot sizes in urban district
(3) Multi -family residential
The Planning Commission recommended maintaining the 10 acre minimum
lot size in the A-1 (Agricultural) zoning district. There was also much
discussion by the Steering Committee and Planning Commission regarding
"clustering" of residential lots and possibly providing incentives as far as
increased density to achieve this clustering concept. The Steering Committee
recommended specific guidelines to allow an increased density if clustering
was used; however, the Planning Commission felt the issue needed further
discussion and therefore, adopted a "policy" that clustering is a concept the
City should review and possibly develop an ordinance.
Secondly, it was recommended that lot sizes in the urban service area be
reviewed and increased in size. It was felt that this increase in lot size could
most likely occur in areas that offered natural amenities to attract larger,
more expensive homes.
Lastly, the Land Use Plan Map was amended in several areas to eliminate
additional multi -family development. The City's housing stock is currently
comprised of 22% multi -family and both the Steering Committee and
Planning Commission agreed that this percentage needs to be reduced.
IV. Commercial Plan
The following issues were discussed:
(1) Central Business District
(2) Commercial along Highway 169 between 193rd and 197th
s:council:compplan
Comprehensive Plan
November 27, 1995
(3) Neighborhood Commercial
Page 4
The downtown received a lot of attention during the Steering Committee's
public meetings. Although the Comprehensive Plan does not address specific
issues facing the downtown, it was recommended by both the Steering
Committee and Planning Commission that a "master plan" be prepared. This
master plan will focus on the downtown and provide recommendations and
plans to foster economic stability to this vital part of the community.
The area between 193rd and 197th on the east side of Highway 169 was the
focus of an extensive land use discussion. The Steering Committee reversed
an earlier recommendation and recommended commercial land use be
extended up to 197th Avenue. The Planning Commission was slightly more
cautious and recommended a land use mix of Medium Density Residential
and Highway Business. Staff believes that the opportunity exists to extend
commercial further north than its present location; however, whether it is
extended all the way to 197th needs to be further examined.
The Planning Commission is currently reviewing an ordinance to establish a
Neighborhood Commercial zoning distinct. This district would provide for
intermediate commercial uses in areas where Highway Commercial is not
compatible with surrounding land uses. The neighborhood commercial
concept is currently part of the 1988 plan and was once again recommended.
VI. Industrial
One of the goals in updating the Comprehensive Plan was to increase
industrial opportunities throughout the community. The plan recommends
expanding the western business park between Waco Street and Joplin by
including the county fairground property. It also identifies creating a Light
Industrial area at the intersection of County Road No. 12 and 13. This area
is relatively close to the existing water and sewer facilities and could be
served in the near future.
Lastly, the East Highway 10 corridor also was recommended to have an
increased industrial area along 165th Avenue, as well as a business park
along the southwest side of Highway 10. These two areas would provide
additional industrial opportunities later on in the future, as the existing
industrial areas develop.
VII. Parks and Open Snace
*One of the issues associated with this section of the plan was to examine
expansion opportunities for Orono Park.
s:council:compplan
Comprehensive Plan
November 27, 1995
Page 5
As mentioned earlier in the memo, this section of the plan will receive
additional review by the Planning Commission and City Council at future
public hearings.
VII. Transportation
*The main issue associated with the transportation plan has to do with
identifying future corridors for road improvements. A large majority of the
discussion centered on the east -west corridor, leaving little time to the
balance of the transportation plan. During the future public hearing to
review this section, staff is hopeful that the plan can be presented in its
entirety and discussed in a comprehensive manner.
IX. Implementation
*Major changes associated with this section had to do with the addition of all
of the land use designations and zoning designations, along with a brief
description of each of the districts. This section has also been modified to
include a brief description of economic development and the role of the
Economic Development Authority and Housing and Redevelopment
Authority.
Recommendation
It is recommended that the City Council approve the 1995 Comprehensive
Plan, along with all of the attachments and maps, except for Section No.
VII., relating to Parks and Open Spaces, and Section No. VII. - the
transportation element. These two sections will be presented at a future
public hearing and incorporated as part of the Comprehensive Plan upon
approval by the City Council.
s:council:compplan
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