Planning Commission Packet - January 27, 2026
Planning Commission
Regular Meeting
&
Work Session
Agenda
Tuesday, January 27, 2026
6:30 PM
Elk River City Hall
▪ Regular meeting in Council Chambers
▪ Work Session meeting in Council Chambers immediately following regular meeting
1. CALL MEETING TO ORDER
2. PLEDGE OF ALLEGIANCE
3. CONSIDER AGENDA
4. CONSIDER MINUTES
4.1 DRAFT Minutes - December 16, 2025
5. PUBLIC HEARINGS
An opportunity for the public to express their opinions and raise questions pertaining to the agenda item. All comments
become part of the official public record. For this reason, all comments must be made at the podium so they can be heard
and recorded. Comments may also be provided in writing. There will not be deliberations, discussions, or answers to
questions until the hearing is closed. It is important to be courteous and allow each presenter to comment before adding
additional testimony.
5.1 Conditional Use Permit: Private Kennel, Ruth Dutchak - 11799 191st Ave NW
5.2 Interim Use Permit: Renewal for Multi-Family Residential Unit, Sogdiana LLC - 732 Vernon Ave
NW
5.3 Conditional Use Permit: Vehicle Sales, Highway 10 Auto Sales - 17323 US Highway 10 NW
5.4 Ordinance Amendment and Conditional Use Permit: Educational Use, Good Shepherd High
School - 630 Freeport Ave NW
6. GENERAL BUSINESS
Items in which the information is presented by city staff or consultants, then deliberation and action occur. General Business
items are not opportunities to receive or provide public input. However, the presiding officer may, at its sole discretion,
solicit public feedback.
7. COUNCIL LIAISON UPDATES
8. MOTION TO ADJOURN REGULAR MEETING
9. WORK SESSION
Work Sessions are less formal meetings to encourage dialog. Official action or votes are not typically taken. At the
conclusion of a discussion, a simple consensus provides staff direction for execution of the item. This portion of the agenda
is audio recorded but not video recorded or broadcast. Work Sessions are open to the public; however, visitors who wish
to provide input must be invited by the presiding officer, assume a seat at the discussion table and provide their full name
and address for the official record.
9.1 Comprehensive Plan and Land Use Discussion
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The Elk River Vision
A welcoming community with revolutionary and spirited resourcefulness, exceptional service, and community
engagement that encourages and inspires prosperity
10. MOTION TO ADJOURN
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Meeting of the Planning Commission
Held at the Elk River City Hall
Tuesday, December 16, 2025
Members Present: Chair Perry Beise, Commissioner Eric Johnson, Commissioner Robert Rydberg,
Commissioner Dennis Booth, Commissioner James Zahler, Commissioner
Dornan Bland
Members Absent: Commissioner Anthony Kaba, Councilmember Jennifer Wagner
Staff Present: Community Development Director Zack Carlton, Senior Planner Chris
Leeseberg, and Sr. Administrative Assistant/Recording Secretary Katie Porath
Others Present: City Attorney Richard Hansen
1. CALL MEETING TO ORDER
Pursuant to due call and notice thereof, the meeting was called to order at 6:30 p.m.
2. PLEDGE OF ALLEGIANCE
The Pledge of Allegiance was recited.
3. CONSIDER AGENDA
Moved by Commissioner Johnson and seconded by Commissioner Booth to approve the
agenda. Motion carried 6-0.
4. CONSIDER MINUTES
Moved by Commissioner Johnson and seconded by Commissioner Booth to approve the
following consent items as outlined in their respective staff reports. Motion carried 6-0.
4.1 DRAFT Minutes - November 25, 2025
5. PUBLIC HEARINGS
5.1 Ordinance Amendment and Conditional Use Permit: Discount Tire, PID 75-00899-0010
Mr. Leeseberg presented the staff report.
Commissioner Johnson asked if other tire shops in Elk River have a condition to keep their doors
closed as Condition 8 states, "Overhead doors must be kept closed while operating tools and
equipment to minimize noise impacts on adjacent businesses." Mr. Leeseberg stated that many home
occupations do, but commercial businesses do not. This particular site is closer to residential areas than
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Planning Commission Minutes
December 16, 2025
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other tire shops.
Commissioner Bland asked if there was a ratio of garage bays to number of required parking stalls. Mr.
Leeseberg stated it was based on square footage of the building as well as the Planning Unit
Development (PUD) in the area.
Chair Beise opened the public hearing.
Todd Mosher, R.A. Smith, Inc., on behalf of Discount Tire, asked the Commission to remove
Condition 8 and described the hardship that keeping the doors closed would have on the business. He
stated that the highway located next to the business creates more noise than the air wrenches used in
the business.
Commissioner Rydberg clarified that the bay doors were facing Aldi and not toward Highway 169.
Chair Beise asked if the CUP could include a condition restricting the hours that the doors can be
open. Mr. Mosher stated Discount Tire hours of operation have never changed.
Chair Beise closed the public hearing.
Commissioner Johnson stated he was comfortable removing Condition 8 as other tire shops in the area
do not have this condition.
Moved by Commissioner Johnson and seconded by Commissioner Zahler to recommend
approval of an Ordinance Amendment codifying the Planned Unit Development (PUD)
standards for the Elk Ridge Center area and adding Motor Vehicle Specialty Service
Stations as a Conditional Use in the district. Motion carried 6-0.
Moved by Commissioner Rydberg and seconded by Commissioner Johnson to recommend
approval of a Conditional Use Permit (CUP) for the proposed Discount Tire operation in
Elk Ridge Center, subject to the following conditions, as amended:
1. City Council approval of the associated ordinance amendment (OA 25-10) and plat (P
25-26).
2. Staff approval of all site, engineering, landscaping, and utility plans.
3. The use of hazardous materials such as lubricants, oils, chemicals, and solvents must be
handled in accordance with state standards.
4. The outdoor storage of tires, new deliveries or used, is prohibited. All tires must be
stored within the building and not visible from the exterior.
5. All four sides of the building must meet the PUD design standards.
6. The shared parking with the property to the south must be maintained and access
between lots shall not be impeded.
7. The applicant must provide evidence of easements which provide access between the
lot and a public street.
Motion carried 6-0.
5.2 Ordinance Amendment: Reasonable Accomodation Appeal Process, City of Elk River
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Planning Commission Minutes
December 16, 2025
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Mr. Leeseberg presented the staff report.
Commissioner Johnson asked if an applicant was required to disclose private Health Insurance
Portability and Accountability Act (HIPAA) data.
City Attorney Richard Hansen, Campbell Knutson, gave some additional information on the
proposed ordinance. He stated that a request for accommodation would need to meet certain
standards including:
▪ Is it a qualifying disability?
▪ Is it necessary?
▪ Is it reasonable?
Commissioner Johnson had concerns that staff changes could allow for someone with more leniency to
approve projects at their own discretion.
Commissioner Bland questioned cases where a doctors note could provide a low level of evidence. If
staff approves applications, they are neither appointed nor elected and, therefore, have no incentive not
to take the path of least resistance. Staff may become burdened with these cases and approval should
be the role of the Commission.
Mr. Leeseberg stated that staff takes on implementation of many other ordinances.
Commissioner Johnson highly encouraged staff to work with the City Attorney to establish qualified
disability as each type of disability presented unique circumstances.
City Attorney Hansen agreed that reasonable accommodation requests would be considered on a case-
by-case basis but having the ordinance would provide a "roadmap" to make determinations. He added
that, while many of the requests would be planning-related items, some reasonable accommodation
requests could be for different city departments.
Commissioner Johnson suggested modifying the proposed ordinance language to require attorney
review.
Commissioner Bland reiterated that he believed the proposed language would put an undue burden on
staff to make sure applicants met the standards.
City Attorney Hansen commented that staff can change but commission members can also change.
Mr. Leeseberg assured the commission that staff was more comfortable asking for attorney assistance
with Americans with Disabilities Act (ADA) decisions. He stated the Commission did not have to make
a recommendation on the proposed ordinance at this meeting and could continue discussion at a future
meeting.
City Attorney Hansen reiterated that the Commission recommendation would next go to the City
Council for approval.
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Planning Commission Minutes
December 16, 2025
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Moved by Commissioner Johnson to recommend approval of the Ordinance Amendment
creating an appeal process for reasonable accommodations under the Americans with
Disabilities Act, adding language to paragraph 3 "the Community Development Director
and the City Administrator in consultation with the City Attorney".
Mr. Leeseberg asked if the wording could be modified to include "or designee" and remove Community
Development Director.
Moved by Commissioner Johnson and seconded by Commissioner Booth to recommend
approval of the Ordinance Amendment creating an appeal process for reasonable
accommodations under the Americans with Disabilities Act, adding language to paragraph
3 "the City Administrator or designee in conjunction with City Attorney". Motion carried
5-1. Commissioner Zahler opposed.
6. GENERAL BUSINESS
There was no general business.
7. COUNCIL LIAISON UPDATES
Mr. Leeseberg gave an update on Council actions from the December 15, 2025 City Council meeting
including approval of the Northstar Trucking Conditional Use Permit, with an extension to June 2026,
and the Variance for a water-oriented structure.
Commissioner Booth requested that the Commission review land use.
Mr. Leeseberg added that the Variance for an apartment building was denied at the City Council
meeting and the Sherburne County billboard request was approved.
8. MOTION TO ADJOURN REGULAR MEETING
Moved by Commissioner Johnson and seconded by Commissioner Bland to adjourn the
meeting. Motion carried 6-0.
The regular meeting adjourned at 7:18 p.m. Chair Beise called the work session to order at 7:18 p.m.
9. WORK SESSION
9.1 Concept Review: Mille Lacs Motorsports II, Inc., PID 75-00014-1200
Mr. Leeseberg presented the staff report.
Commissioner Johnson asked why the applicant wanted to raise the four billboards by five feet.
Tom Dehn, applicant, owner of Power Lodge Ramsey, explained that he was considering
purchasing the site. He did not want any of the billboards but, if they needed to remain, he would need
them to be taller so they did not block his proposed project.
Commissioner Johnson agreed that billboards would block any business built behind it on that site. He
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Planning Commission Minutes
December 16, 2025
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asked if the billboards could be removed or only keep the billboards at the two corners of the lot to
avoid blocking a building.
Mr. Leeseberg stated that current city standards allow either a billboard or a building on a property.
Commissioner Rydberg asked if Franklin Outdoor Advertising, the billboard company, owned the
property that the billboards sat on. Mr. Leeseberg stated he didn't know about the agreement between
Franklin and the Specht property.
Commissioner Rydberg clarified that Mr. Dehn had not yet purchased the property.
Mr. Leeseberg stated that one option could be to rezone the property to a PUD with a special rule to
allow billboards and buildings on the same property.
Chair Beise felt the Commission needed more information. Commissioner Rydberg suggested that Mr.
Dehn negotiate with the seller of the property to remove the billboards. Commissioner Johnson
suggested keeping only the billboards at the ends of the property. Commissioner Bland was not in favor
of any billboards as that did not meet the intent of the rule.
The Commission was not in favor of allowing both billboards and buildings on the same site and
requested additional information on the ownership and technicalities, including potentially subdividing
the property. The project may also go to the council for concept review.
10. MOTION TO ADJOURN
Moved by Commissioner Johnson and seconded by Commissioner Booth to adjourn the
meeting. Motion carried 6-0.
The meeting adjourned at 7:44 p.m.
Minutes prepared by Katie Porath.
___________________
Perry Beise, Chair
___________________
Jolene Richter, City Clerk
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The Elk River Vision
A welcoming community with revolutionary and spirited resourcefulness, exceptional service, and community
engagement that encourages and inspires prosperity
Request for Action
To
Planning Commission
Item Number
5.1
Meeting Date
January 27, 2026
Prepared By
Chris Leeseberg, Senior Planner
Item Description
Conditional Use Permit: Private Kennel, Ruth
Dutchak - 11799 191st Ave NW
Reviewed by
Zack Carlton
Action Requested
Recommend, by motion, approval of a Conditional Use Permit with the following conditions to satisfy the
standards set forth in Section 30-654:
1. The Conditional Use Permit is for a maximum of 5 dogs over 20 pounds each (10 Animal Units).
2. All animals shall be properly licensed and maintained in accordance with city regulations.
3. No more than two (2) animals per supervisor shall be allowed outside of the fenced area.
4. The removal of animal waste shall comply with Section 10-5.
5. Outdoor kennel structures or runs are not permitted.
6. No dog designated as dangerous or potentially dangerous are allowed to be kept on site, and the
keeping of such dog shall be grounds for revocation of the permit.
7. The existing fence shall be maintained in good working condition. Supplemental containment measures
may be used as needed.
8. Failure to comply with the conditions of approval or applicable city code requirements may result in
enforcement action, including revocation of the Conditional Use Permit.
Background/Discussion
The applicant is requesting approval of a Conditional Use Permit (CUP) to allow a private kennel consisting of
five dogs, which equates to ten animal units under city codes. Dogs over 20 pounds are counted as two
animal units. The dogs consist of one Corgi (approximately 30 pounds), two German Shepherd crosses
(approximately 55 pounds each), and two Standard Poodles (approximately 50 pounds each).
The applicant and their daughter previously lived separately, but combined households when they purchased
the subject property, resulting in a total of five dogs. The dogs are primarily housed indoors, and there are no
outdoor kennel structures on the property. The rear yard is fully enclosed with chain-link fencing. One dog
that has previously escaped the fenced area is currently secured and undergoing training with an electronic
containment system. All dogs are spayed or neutered.
One complaint has been received regarding a dog entering a neighboring yard. Since that time, additional
containment measures have been implemented. A barking complaint has also been addressed by use of a bark
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collar when the dog is outdoors.
Applicable Regulations
The issuance of a Conditional Use Permit can be ordered only if the use at the proposed location:
1. Will not endanger, injure or detrimentally affect the use and enjoyment of other property in the immediate vicinity or
the public health, safety, morals, comfort, convenience or general welfare of the neighborhood or the city.
The proposed use will not endanger, injure, or detrimentally affect neighboring properties or the general
welfare of the neighborhood. The dogs are primarily kept indoors, no outdoor kennel structures are
proposed, and the property is fenced. Corrective actions have been taken in response to past complaints,
including improved containment and noise mitigation measures. With these safeguards in place, the use is not
anticipated to adversely impact surrounding properties.
With the proposed conditions, this standard can be met.
2. Will be consistent with the comprehensive plan.
The property is guided for Traditional Single Family Residential and is consistent with the Comprehensive
Plan.
Staff do not see a need to impose specific conditions to satisfy this standard.
3. Will not impede the normal and orderly development and improvement of surrounding vacant property.
As there are no vacant properties in the area, the approval of the CUP will not impede the normal and
orderly development of surrounding vacant properties.
Staff do not see a need to impose specific conditions to satisfy this standard.
4. Will be served adequately by and will not adversely affect essential public facilities and services including streets,
police and fire protection, drainage, refuse disposal, water and sewer systems, parks and schools; and will not, in
particular, create traffic congestion or interference with traffic on adjacent and neighboring public thoroughfares.
The property is adequately served by existing public facilities and services, including streets, police and fire
protection, refuse disposal, water, and sewer services. The use will not generate additional traffic or create
congestion on adjacent public streets. No adverse impacts to parks, schools, or other public facilities are
anticipated.
Staff do not see a need to impose specific conditions to satisfy this standard.
5. Will not involve uses, activities, processes, materials, equipment and conditions of operation that will be detrimental
to any persons or property because of excessive traffic, noise, smoke, fumes, glare, odors, dust or vibrations.
Except for possible odors from dog waste, the proposed use will not involve activities or conditions that are
detrimental to persons or property due to excessive noise, odors, or other nuisances. Measures have been
implemented to address barking concerns, and the dogs are primarily kept indoors. No smoke, fumes, glare,
dust, vibrations, or similar impacts are associated with the use.
With the proposed conditions, specifically #4, this standard can be met.
6. Will not result in the destruction, loss or damage of a natural, scenic or historic feature of major importance.
The proposed use will not result in the destruction, loss, or damage of any natural, scenic, or historic features
of major importance. No site disturbance or structural changes are proposed.
Staff do not see a need to impose specific conditions to satisfy this standard.
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7. Will fully comply with all other requirements of this Code, including any applicable requirements and Standards for
the issuance of a license or permit to establish and operate the proposed use in the city.
The proposed use complies with all applicable requirements of the City Code, including standards for the
issuance of a Conditional Use Permit and any applicable licensing or operational requirements. Continued
compliance with animal control regulations and any conditions imposed with approval will be required.
Based on the findings above, the request for a private kennel consisting of ten animal units (five dogs) meets
the applicable standards for a CUP. The proposed use appears to be compatible with the surrounding
neighborhood and can operate without adverse impacts when maintained in compliance with city regulations
and any conditions of approval.
Financial Impact
None.
Mission/Policy/Goal
Ethical, efficient, and responsible.
Attachments
1. CU 25-14 Location Map
2. Narrative
3. Site Photo
4. Presentation
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Page 11 of 110
Narrative
We have 5 dogs because I had 2 and my daughter had 3. When we each sold our houses
and bought one together we combined our dogs and ended up with 5.
We have 1 corgi that is about 30 pounds; 2 German Shepherd crosses that are about 55
pounds and 2 Standard Poodles that are about 50 pounds each.
The dog scare in the house most of the time. There are no physical kennels outside.
The entire back yard is fenced with chain link fencing. In addition, our one escape artist
(one of the Shepherd crosses) is currently being trained for a Halo electronic containment
system.
All of the dogs are spayed or neutered.
There was one complaint filed about one dog escaping into the neighbors yard. Since that
time he has been tied up and as stated earlier is being trained for a Halo electronic
containment system as he gets under the existing fence. A barking complaint is being dealt
with by the offender wearing a bark collar whenever he is outside.
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Conditional Use
Permit
Private Kennel
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Slide Title
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Background
§Mother & daughter moved in together
§Mom has 2 dogs
§Daughter has 3 dogs
§5 dogs totaling 10 animal units
§6 AU’s allowed without approved CUP
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Background
§Primarily housed indoors
§No outdoor kennel structures
§Entire backyard is fenced
§One complaint has been received
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Public Hearing
§Staff received a voicemail today
§Ask review be rescheduled
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Applicable Regulations
§Staff’s analysis of the application shows compliance with 5
of the 7 standards required for approval of the CUP
§With the recommended conditions, the other 2 standards
should be complied with
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Action Requested
§Recommend, by motion, approval of a CUP with the eight
(8) conditions outlined in the memo to satisfy the
standards set forth in Section 30-654
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City Council Meeting
§If acted on, this item will go to the February 17, 2026, City
Council meeting
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Slide Title
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Page 24 of 110
The Elk River Vision
A welcoming community with revolutionary and spirited resourcefulness, exceptional service, and community
engagement that encourages and inspires prosperity
Request for Action
To
Planning Commission
Item Number
5.2
Meeting Date
January 27, 2026
Prepared By
Chris Leeseberg, Senior Planner
Item Description
Interim Use Permit: Renewal for Multi-Family
Residential Unit, Sogdiana LLC - 732 Vernon Ave
NW
Reviewed by
Zack Carlton
Action Requested
Recommend, by motion, approval of the Interim Use Permit with the following conditions:
1. The Interim Use Permit shall terminate February 17, 2029, or when the property changes ownership,
whichever occurs first.
2. The building shall be inspected by the city’s Building Official and Fire Marshal to verify compliance with
all building and fire codes.
3. The Interim Use Permit will be recorded against the property to put any future buyers on notice that
the Interim Use Permit will not run with property.
4. The structure shall be returned to a single-family home prior to sale or when the Interim Use Permit
terminates.
5. The applicant shall submit a deposit in the amount of $5,000 to ensure compliance with the Interim
Use Permit conditions.
6. The applicant shall provide documentation that each tenant received a letter indicating the Interim Use
Permit will expire on February 17, 2029, and the structure will be converted back to a single-family
residential district.
7. No additional Interim Use Permits will be granted for a similar use on this property beyond February
17, 2029.
Background/Discussion
The property is zoned R1-c single-family residential where multi-family residential structures are not a listed
as an allowed use. The City Council approved an Interim Use Permit (IUP) for this property on March 16,
2020, and again on January 17, 2023, for a multi-family residential use, allowing the use in a single-family zoning
district.
The structure was built in 1976 as a single-family home in a single-family district but has been converted to a
three-unit multi-family structure for some time. The applicant is requesting, for a second time, an extension to
their IUP to continue utilizing the single-family home as a three-unit multiple family building. The request is for
another period of 3 years (36 months) or until he no longer owns the property, whichever occurs first.
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At their January 17, 2023, meeting, the council questioned how many years the IUP will be reapproved. With
this application, it would be the third round of a three-year approval, a second extension. The minutes from
the previous extension request for the Planning Commission and City Council are attached. If the
commission is concerned with the length of the request, they can recommend a shorter duration of the IUP.
Staff have included a recommendation for this application to be the last one granted for this use on this
property.
Applicable Regulations
Before the city council may authorize an interim use, it must make the following findings:
1. The period of time for which the interim use permit is to be granted will terminate before any adverse impacts
are felt upon adjacent properties.
The proposal is in a fully developed neighborhood of single-family homes. The city is not aware of any
concerns or issues that have occurred since the original IUP was granted and through the first extension.
2. There is adequate assurance that the property will be left in suitable condition after the use is terminated.
With the condition of the structure being returned to a single-family home prior to sale or when the IUP
terminates, the use will be left in a condition suitable for a single-family home.
3. The use is similar to uses allowed in the zoning district in which the property is located.
Single-family residential uses are allowed in the single-family zoning district. The proposed IUP, while multiple
family, is a residential use.
4. The date or event that will terminate the use can be identified with certainty.
The applicant is requesting the IUP terminate at 3 years, or until he no longer owns the property, whichever
occurs first. This does not preclude the applicant from asking for an extension in the future or another owner
requesting a new IUP. In this situation, the IUP approach is deflecting the non-conforming use onto someone
else in the future. With the condition of converting it to a single-family structure, the termination of use may
be identified with certainty.
5. Authorizing the use will not impose additional costs on the public if it is necessary for the public to take the
property in the future.
The use should not impose additional costs with the recommended deposit.
6. The applicant and user agree to all conditions that the city council deems appropriate for authorization of the
interim use.
This will be determined at the City Council meeting.
7. The applicant provides assurances deemed adequate by the city council that the use will terminate as provided
in the interim use permit. The city council may require the applicant to deposit a cash amount with the city, or
provide some other form of security, to ensure compliance with this criteria.
Again, the applicant indicates the IUP will terminate after 3 years or until he no longer owns the property,
whichever occurs first. With possible extensions or new owners, there is no certainty the use will be
terminated. If the city requires the conversion to a single-family structure and secures an appropriate deposit
to ensure compliance with the conditions the use can be terminated as provided in the interim use permit.
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8. Authorization of the interim use will not result in adverse effects on the public health, safety, or welfare.
Since the approval of the original IUP and through the first extension, there has not been any record of
adverse effects with the property.
9. The proposed interim use is consistent with the City of Elk River Comprehensive Plan and conforms to the city's
zoning regulations.
Residential uses are consistent with the Comprehensive Plan and while a multi-family use is not allowed in the
zoning district, it is consistent with the Comprehensive Plan.
Financial Impact
None.
Mission/Policy/Goal
Ethical, efficient, and responsible.
Attachments
1. IU 25-08 Location Map
2. Narrative
3. Site Photo
4. Presentation
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Narrative
RE: Renewal / Extension Request for Interim Use Permit – Case No. IU 20-01 Property
Address: 732 Vernon Ave NW, Elk River, MN Dear Planning Department, I am submitting
this request for renewal or extension of the approved Interim Use Permit (Case No. IU 20-
01) for an additional term. Since March 2020, the property located at 732 Vernon Ave NW
has been used as a multi-family dwelling under the current permit. Most of the tenants
have resided at this location since the original approval. Any disruption to the current use
may cause undue hardship to these residents and their families. Throughout our
ownership and during the active permit period, the property has been maintained in full
compliance with all applicable city codes and regulations. We are pleased to report minimal
to no police activity and no incidents that would negatively impact the surrounding
neighborhood. The property is consistently maintained by our management team, with
assistance from responsible tenants who take pride in their homes and the community. We
enforce strict lease provisions and conduct regular inspections to ensure compliance with
all occupancy and property maintenance standards. Our tenants are cooperative,
respectful, and contribute to maintaining the property’s condition and curb appeal. These
collective efforts help preserve neighborhood character and property values. We
respectfully request that the City consider extending the current Interim Use Permit for an
additional term, allowing continued stable occupancy under the same responsible
management and compliance standards.
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Interim Use
Permit
Sogdiana LLC
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Background
§R1-c Single Family Residential
§Multi-family not listed as an allowed use
§~0.75 acres with 4,500 sq.ft of total living space
§Three separate dwelling units
§Each with private entrances
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Background
§(Unit 1) 3 bedrooms, living room, kitchen, 1 bathroom, in-
unit laundry
§(Unit 2) 1 bedroom, living room, dining area, kitchen, 1
bathroom, in-unit laundry
§(Unit 3) 3 bedrooms, living room, dining area, kitchen, 1
bathroom, in-unit laundry
§A large shared backyard
§Concrete driveway accommodates up to six vehicles for off-
street parking
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Page 35 of 110
Background
§2023 CC meeting - they questioned how many years the
IUP will be reapproved (3 years then)
§This application - second extension totaling 9 years
§If PC concerned with the timeline
§A shorter duration can be recommended
§Staff included recommended condition
§This be the last extension granted for this use on this
property
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Background
§Requesting second extension
§2020 (original approval)
§2022 (1st extension - terminates March 16, 2026)
§2026 (2nd extension request - terminates February 17,
2029)
§9 years for an IUP
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Applicable Regulations
§Staff’s analysis of the application shows compliance with
all 9 standards required for approval of the IUP
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Action Requested
§Recommend, by motion, approval of a IUP with the seven
(7) conditions outlined in the memo
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City Council Meeting
§If acted on, this item will go to the February 17, 2026, City
Council meeting
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The Elk River Vision
A welcoming community with revolutionary and spirited resourcefulness, exceptional service, and community
engagement that encourages and inspires prosperity
Request for Action
To
Planning Commission
Item Number
5.3
Meeting Date
January 27, 2026
Prepared By
Chris Leeseberg, Senior Planner
Item Description
Conditional Use Permit: Vehicle Sales, Highway 10
Auto Sales - 17323 US Highway 10 NW
Reviewed by
Zack Carlton
Action Requested
Recommend, by motion, approval of a Conditional Use Permit with the following conditions to satisfy the
standards set forth in Section 30-654:
1. The Conditional Use Permit shall not be recorded until all conditions have been completed.
2. The applicant and/or property owner must apply for all required commercial building, electrical,
plumbing, and/or mechanical permits before any associated activities can occur.
3. The building shall be inspected by the city’s Building Official and Fire Marshal to verify compliance with
all building and fire codes.
4. The number of motor vehicle sales dealers shall be limited to one (1).
5. An amendment to this Conditional Use Permit will be required for additional dealers.
6. A minimum of 8 off-street parking stalls shall be maintained on-site and always remain available for
customer and employee use.
7. No outdoor storage of vehicles not for sale (except employees and customers), parts, equipment, or
materials is permitted.
8. No motor vehicle repairs or body work can occur.
9. The applicant and/or property owner shall ensure that any vehicle stored outside does not leak fuels
or other hazardous materials onto the ground.
10. All regulations related to storage, disposal, and spill control for automobile fluids need to be followed.
Background/Discussion
The applicant is requesting approval of a Conditional Use Permit (CUP) to conduct used motor vehicle sales
and related activities within an existing commercial building and associated parking lot. The proposed use will
occupy approximately 216 square feet of lobby and office space within the existing structure. No expansion of
the building or site improvements are proposed.
The business will operate Monday through Saturday from 9:00 a.m. to 7:00 p.m. The applicant has stated that
there will be no outdoor storage, other than for sale vehicles, associated with the use.
The property contains 30 existing off-street parking stalls, of which 13 stalls are proposed to be utilized.
Parking requirements for auto sales and similar uses require one parking space per 500 square feet of floor
Page 41 of 110
area, as well as one parking space per 5,000 square feet of land used for sales and display. The state also
requires display area for a minimum of 5 vehicles per dealer.
Based on 216 square feet of interior space (1 stall) and approximately 6,000 square feet of outdoor display
area (2 stalls), and the state requirements (5 stalls) the required parking is satisfied by the existing on-site
parking supply and the 13 proposed stalls.
Applicable Regulations
The issuance of a Conditional Use Permit can be ordered only if the use at the proposed location:
1. Will not endanger, injure or detrimentally affect the use and enjoyment of other property in the immediate
vicinity or the public health, safety, morals, comfort, convenience or general welfare of the neighborhood or the
city.
The business will operate entirely within an existing commercial structure. No outdoor storage or repair
activities are proposed. Hours of operation are reasonable and consistent with other commercial uses in the
area. The proposed use will not endanger, injure, or detrimentally affect the use and enjoyment of nearby
properties or the public health, safety, morals, comfort, convenience, or general welfare of the neighborhood
or the city.
Staff do not see a need to impose specific conditions to satisfy this standard.
2. Will be consistent with the comprehensive plan.
The property is guided as Highway Business, which primarily consists of a mix of auto-oriented retail and
service businesses, restaurants, and community- and regional-scale shopping centers. Highway business uses
are located along Highway 169 and Highway 10 and have high visibility from these corridors. The use is
consistent with the Comprehensive Plan.
Staff do not see a need to impose specific conditions to satisfy this standard.
3. Will not impede the normal and orderly development and improvement of surrounding vacant property.
As there are no vacant properties in the area, the site is already developed, and the proposed use does not
require changes that would limit future development options for adjacent parcels, the proposed use will not
impede the normal and orderly development and improvement of surrounding vacant or developed
properties.
Staff do not see a need to impose specific conditions to satisfy this standard.
4. Will be served adequately by and will not adversely affect essential public facilities and services including
streets, police and fire protection, drainage, refuse disposal, water and sewer systems, parks and schools; and
will not, in particular, create traffic congestion or interference with traffic on adjacent and neighboring public
thoroughfares.
The proposed use is low-intensity and will not generate excessive traffic. Adequate on-site parking is
provided, and traffic access will not cause congestion or interfere with adjacent public roadways. The site is
adequately served by existing public facilities and services, including streets, police and fire protection,
drainage, refuse disposal, water, and sanitary sewer systems.
Staff do not see a need to impose specific conditions to satisfy this standard.
Page 42 of 110
5. Will not involve uses, activities, processes, materials, equipment and conditions of operation that will be
detrimental to any persons or property because of excessive traffic, noise, smoke, fumes, glare, odors, dust or
vibrations.
The proposed use will not involve activities, materials, or conditions of operation that would be detrimental
to persons or property due to excessive traffic, noise, smoke, fumes, glare, odors, dust, or vibrations. All sales
activities will be conducted during normal business hours, and no mechanical or cosmetic repair work is
proposed.
Staff do not see a need to impose specific conditions to satisfy this standard.
6. Will not result in the destruction, loss or damage of a natural, scenic or historic feature of major importance.
No site work is being proposed. The proposal will not result in the destruction, loss, or damage of any
natural, scenic, or historic feature of major importance, as no site alterations or land disturbance are
proposed.
Staff do not see a need to impose specific conditions to satisfy this standard.
7. Will fully comply with all other requirements of this Code, including any applicable requirements and Standards
for the issuance of a license or permit to establish and operate the proposed use in the city.
The proposed use will comply with all applicable requirements of the City Code, including zoning regulations
and licensing requirements, subject to compliance with the conditions of approval outlined below.
Staff have recommended several conditions to ensure compliance with city code requirements.
Financial Impact
None.
Mission/Policy/Goal
Support the growth and development of the community.
Attachments
1. CU 25-17 Location Map
2. Site Plan
3. Presentation
Page 43 of 110
Page 44 of 110
Page 45 of 110
Conditional
Use Permit
Highway 10 Auto Sales
Page 46 of 110
Page 47 of 110
Background
§Requesting CUP for motor vehicle sales
§Utilize existing building (~216 sq.ft)
§9:00 a.m. – 7:00 p.m.
§30 parking stalls (13 for requested use)
Page 48 of 110
Page 49 of 110
Applicable Regulations
§Staff’s analysis of the application shows compliance with 6
of the 7 standards required for approval of the CUP
§With the recommended conditions, the other standard
should be complied with
Page 50 of 110
Action Requested
§Recommend, by motion, approval of a CUP with the ten
(10) conditions outlined in the memo to satisfy the
standards set forth in Section 30-654.
Page 51 of 110
City Council Meeting
§If acted on, this item will go to the February 17, 2026, City
Council meeting
Page 52 of 110
The Elk River Vision
A welcoming community with revolutionary and spirited resourcefulness, exceptional service, and community
engagement that encourages and inspires prosperity
Request for Action
To
Planning Commission
Item Number
5.4
Meeting Date
January 27, 2026
Prepared By
Zack Carlton, Community Development Director
Item Description
Ordinance Amendment and Conditional Use Permit:
Educational Use, Good Shepherd High School - 630
Freeport Ave NW
Reviewed by
Chris Leeseberg
Action Requested
Recommend, by motion, denial of the proposed ordinance amendment to add Educational Institutions as an
allowed use in the MU-ERP zoning district as the use is not consistent with the goals and intended purpose of
a commercial area.
Recommend, by motion, denial of a Conditional Use Permit for an Educational Institution as it is not an
allowed use in the MU-ERP zoning district.
Background/Discussion
The applicant, Good Shepherd Lutheran High School, has requested adoption of an ordinance amendment
that would add Educational Institutions as a conditional use in the Mixed Use Elk River Plaza (MU-ERP) zoning
district. The zoning district is a former Planned Unit Development (PUD) district that had the PUD
agreement added to city codes in 2010. The zoning district is divided into three separate areas: multifamily
residential, single-family residential, and commercial. Each of these ares are distinct in their location within the
district and act as separate districts with their own allowed uses. The proposed amendment would apply to
the commercial section as the proposed building site is within the commercial section of the MU-ERP zoning
district.
Commercial districts, especially those along major highways, support retail and commercial uses, providing
employment and economic opportunities throughout the community. Educational uses do not appear to
support the goals of commercial districts, and based on that analysis, staff do not recommend approval of the
amendment.
The associated Conditional Use Permit application cannot be approved without the ordinance amendment.
If the Planning Commission supports the proposed ordinance amendment, staff requests a formal
recommendation for the ordinance amendment and continue the discussion of the Conditional Use Permit to
February 24, 2026. This will allow the City Council to act on the ordinance amendment on February 17, 2026,
and provide staff with additional time to review the CUP in more detail.
Page 53 of 110
Financial Impact
None.
Mission/Policy/Goal
Responsibly grow.
Ethical, efficient, and responsible.
Attachments
1. Location Map
2. Allowed Uses in MU-ERP District
3. MU-ERP Zoning Map
4. Applicant's Narrative
5. Building Plans dated 12-5-2025
6. Presentation
Page 54 of 110
• •j \, J_
JI •.. ,,' ..
� .. 't ' r �
Project Location Map Good Shepherd Luthera11 Ordinance Amendment and Conditional Use Permit .... •
� ...,,. "'"' �
Case No: OA 25-11 & CU 25-16
Page 55 of 110
(a)
(b)
(1)
a.
b.
c.
(2)
a.
b.
c.
(c)
(1)
a.
(2)
a.
b.
(d)
(1)
a.
b.
c.
d.
e.
f.
g.
h.
i.
j.
(2)
Sec. 30-1584. - MU-ERP mixed use Elk River Plaza district.
Purpose. The purpose of the mixed use Elk River plaza district is to codify the planned unit
development into a single zoning district with three subsections: Commercial, single-family, and
multiple-family.
Subzone A. Multiple-family residential.
Permitted uses are as follows:
Residential, multiple family.
Residential, single family.
Townhouse, attached.
Accessory uses are as follows:
Accessory structures.
Public shelters.
Residential occupations.
Subzone B. Single-family residential.
Permitted uses are as follows:
Single-family residential.
Accessory uses are as follows:
Accessory structures.
Residential occupations.
Subzone C. Commercial.
Permitted uses are as follows:
Business and professional offices.
Class I restaurants.
Nurseries, produce markets, and garden centers, which may include outdoor display.
Outpatient health care facilities.
Personal service establishments.
Physical recreation or training.
Public parks.
Retail shops and stores.
Sale of firearms.
Zero lot line development.
Accessory uses are as follows:
Page 56 of 110
a.
b.
c.
(3)
a.
b.
c.
d.
e.
f.
g.
h.
i.
j.
k.
l.
m.
n.
o.
p.
q.
r.
s.
t.
u.
Off-street parking facilities.
Off-street parking facilities.
Public shelters.
Conditional uses are as follows:
Carwashes.
Class II restaurants.
Commercial recreation, outdoor.
Commercial recreational facilities, indoor.
Dry cleaning establishment.
Enclosed light manufacturing with related retail sales.
Equipment rental businesses with no outdoor storage.
Financial institutions.
Funeral parlors.
Governmental offices.
Health care facilities, outpatient.
Licensed day care facilities.
Motor vehicle specialty shops.
Nonprofit clubs, lodges, or halls.
On-sale liquor establishments.
Pawnshops (250-foot setback from any residential zone and 500-foot setback from
schools, parks, day care centers, churches, and other pawnshops, measured from the
property line).
Produce markets.
Religious institutions.
Sauna establishments.
Shopping centers.
Veterinary clinics.
(Ord. No. 10-08, § 1, 6-21-2010; Ord. No. 15-34, § 1, 12-21-2015; Ord. No. 16-07, § 3, 4-18-2016; Ord. No. 16-
10, § 1, 5-16-2016; Ord. No. 19-01, § 1, 1-22-2019; Ord. No. 19-12, § 1, 6-3-2019; Ord. No. 19-15, § 13, 8-19-
2019; Ord. No. 20-03, § 3, 3-16-2020; Ord. No. 23-24, § 10, 11-20-2023)
Editor's note— Section 1 of Ord. No. 10-08, adopted June 21, 2010, set out a provision designated as § 30-
1600. For stylistic purposes and at the discretion of the editor, this provision has been redesignated as § 30-
1584.
Page 57 of 110
_____
Page 58 of 110
Page 59 of 110
Legal Description of Property
We are proposing the development of a new Christian high school facility designed to
support academic, spiritual, and community growth. The project includes classroom
spaces, a multi-purpose worship and assembly area, administrative offices, and
dedicated rooms for science, technology, and the arts. The proposed facility will provide
a safe, functional, and faith-centered environment for students in grades 9–12, allowing
us to expand our enrollment capacity and enhance the educational services we offer to
families in the community.
We ask that Section 30-635 of the City Municipal Code be amended to permit the
operation of a high school educational facility at 630 Freemont Ave NW, Elk River,
recognizing the school’s commitment to educational excellence, community service, and
responsible land use consistent with the City’s comprehensive plan.
A Written Narrative see Description of Project Narrative
Project Narrative – GSL High School
Detailed Description / Scope of Project:
GSL High School is a small Christian high school seeking to expand and formalize its
facility to better serve its students and the community. The project includes the use of
the existing building for educational purposes, along with interior modifications to
optimize classroom, office, and multi-purpose space usage. The goal is to provide a safe,
functional, and faith-centered learning environment for students in grades 9–12.
Proposed Project:
The proposal is to operate a private Christian high school within the existing building
footprint. The facility will include classrooms, administrative offices, and a multi-purpose
assembly/worship area.
Consistency with City of Elk River Comprehensive Plan:
The project aligns with the City of Elk River Comprehensive Plan by supporting
educational services, community development, and family-oriented uses. The school
promotes lifelong learning, civic engagement, and community values, contributing to the
social and cultural objectives outlined in the plan.
Hours of Operation:
▪ Monday–Friday: 8:30 AM – 3:00 PM
Page 60 of 110
▪ Occasional evening/weekend events for school-related activities (e.g., parent
meetings, performances, community events)
Number of Employees:
▪ 2 Full-Time Staff
▪ 5 Part-Time Staff
Parking:
▪ Existing parking: 20 stalls
▪ No additional stalls are required; current parking accommodates staff, students,
and visitors.
Site Screening:
▪ Landscaping and natural screening exist on-site.
Proposed Building Materials:
▪ Interior: Steel framing, commercial-grade flooring, acoustical ceiling tiles, and
impact-resistant surfaces for high-traffic areas
Compliance with Design Standards:
All proposed materials meet or exceed Elk River design and building code
standards, ensuring safety, durability, and an appearance compatible with
surrounding structures.
Signage:
▪ Separate permits will be obtained for each sign
▪ Proposed: 2 exterior signs identifying the school
▪ Size: To comply with city regulations
▪ Location: Front and back of the building
▪ Type: Non-illuminated channel letters as permitted
Outdoor Storage:
▪ No significant outdoor storage is planned.
Page 61 of 110
Page 62 of 110
Good Shepherd High
School
Ordinance Amendment and CUP
Page 63 of 110
Location
Map
Page 64 of 110
Background
§Applicant proposes establishing a school in the MU-ERP
district.
§Educational Uses are not permitted
§Requires an ordinance amendment to add use
§Conditional Use permit specific to school operation.
§Requires approval of the ordinance amendment.
Page 65 of 110
Zoning
§MU-ERP was a PUD that was codified into ordinance
§Mixed Use Elk River Plaza
§The allowed uses are separated into three subzones
§Subzone A – Multifamily Residential
§Subzone B – Single-Family Residential
§Subzone C – Commercial
§Ordinance amendment would impact subzone C.
Page 66 of 110
Page 67 of 110
Amendment
§Area is guided for commercial uses
§Support jobs, retail, and service-related uses
§Shops, restaurants, offices, medical, bank, etc.
§Educational (school) related use is not compatible with the
goals of the area
§Educational uses are generally allowed in residential
districts.
§Reserve area for goals of the district.
Page 68 of 110
CUP
§Staff do not recommend approval of the ordinance
amendment
§Without the amendment, the CUP cannot be approved as it
is not an allowed use.
Page 69 of 110
Action Requested
Recommend, by motion, denial of the ordinance amendment
as the proposed use is not compatible with a commercial
district.
Recommend, by motion, denial of the CUP as educational
uses are not allowed in the district.
If PC supports the amendment – act on the OA and continue
the CUP discussion to 2-24-2026.
Page 70 of 110
Location Map
Page 71 of 110
Page 72 of 110
The Elk River Vision
A welcoming community with revolutionary and spirited resourcefulness, exceptional service, and community
engagement that encourages and inspires prosperity
Request for Action
To
Planning Commission
Item Number
9.1
Meeting Date
January 27, 2026
Prepared By
Zack Carlton, Community Development Director
Item Description
Comprehensive Plan and Land Use Discussion
Reviewed by
Chris Leeseberg
Action Requested
Discuss the current guidance provided by the Comprehensive Plan and provide staff with direction regarding
possible changes.
Background/Discussion
The city adopted an updated Comprehensive Plan in 2021 which removed the guidance recommendations
from the Focused Area Study (FAST) and created consistent land use classifications throughout the
community. These new land-use classes also expanded housing opportunities (duplexes, town homes, etc.) for
many areas of the city. These changes were made to expand affordability by increasing the variety of housing
types allowed in the community. Allowing small multifamily buildings in areas that had traditionally been
limited to single-family homes creates opportunities for smaller, generally less expensive, residential
dwellings.
The FAST area generally aligns with the uses that had been recommended in the 2010 study, but also created
consistency with other areas of the community, which had previously been a concern.
The Planning Commission should review how these land use classes are defined (primarily the Mixed-
Residential) and where the class may be appropriate. The Commission could consider redefining land use
classes, removing the statement of "small scale residential" for example, and reclassifying areas to align with
the commission's vision for the community.
Any recommendations of the commission will need to follow legal public notice requirements and include a
public hearing. Changes discussed during the work session are not final until both the Planning Commission
and City Council have held a public hearing and taken formal action.
Financial Impact
Mission/Policy/Goal
Explain how this meets the city's mission, current policies and/or council goals
Attachments
1. Comprehensive Land Use Plan and Housing Sections
Page 73 of 110
2. FAST Development Recommendations
Page 74 of 110
CHAPTER 3LAND USE PLAN
The Land Use Plan is one of the most important elements of
the Elk River Comprehensive Plan. It outlines how properties in
different parts of the planning area should be used and iden-
tifies the type, character, and intensity of use for each region
of the community. The intent of the Land Use Plan is to ensure
that future development takes into account land use compat-
ibility, access, market viability, environmental features, and
community services. As such, the recommendations made in
the subsequent chapters of the comprehensive plan relate back
to the Land Use Plan.
Elk River Comprehensive Plan • Land Use Plan 25
Page 75 of 110
35 44
32
32
1
12
121
33
13
40
33
101
10
169
16910
Urban Service Area
Existing Urban Service
Area
Proposed Urban Service
Area Extensions
LAKEORONO
Targeted Urban Service Area Expansion
There are several strategic areas of the city that can accom-
modate future development in concert with the sustain-
able expansion of the Urban Service Area. These areas
have existing transportation infrastructure to which new
development can connect as well as minimal wetlands and
conflicts with neighboring land uses that make them well-
suited for future residential, commercial, and industrial
development.
The Urban Service Area map highlights the existing Urban
Service Area in the city and overlays the proposed future
Urban Service Area extensions. Expansion areas include
portions of the Gravel Mining Area, land surrounding the
Twin Lakes Road corridor, and the Elk Lake Road corridor.
The Housing Plan and Economic Development Plan further
elaborate on these expansion areas and provide key
recommendations to ensure development is in line with
the community’s vision for the future.
Future Land Use
The Land Use Plan identifies desired future land uses for all
areas of the City of Elk River both within the Urban Service
Area and out to the city’s boundary. The plan provides a
framework for future planning decisions that build upon
the desired characteristics of Elk River’s established resi-
dential neighborhoods, commercial districts, and employ-
ment areas.
Assess Land Development Regulations for Alignment
with the Comprehensive Plan
To ensure that all standards of review for development
approval and zoning relief processes include alignment
with the comprehensive plan the city should assess its land
development regulations. This will ensure that elected and
appointed officials have clear guidance when considering
requests for map and text amendments, planned unit
developments, and all other petition review processes. It
will also provide fair certainty to residents, businesses,
property owners, and developers.
Land Use Category
Rural Residential
The rural residential category consists of large lot single-
family homes. This is the predominant residential type in
the north of the city beyond the Urban Service Area. This
land use primarily consists of planned residential subdi-
visions and lots located directly on arterial roadways. This
land use supports large lot residential development and
allows agricultural operations as an accessory use where
appropriate.
Traditional Single-family Neighborhood
The suburban residential category predominately consists
of single-family detached homes occupying moderately
sized lots. This land use is the most prevalent residential
type within the Urban Service Area and consists of a range
of neighborhood typologies including the historic grid
block pattern neighborhoods surrounding the downtown
and newer curvilinear block pattern subdivision devel-
opments in the north, east, and west. This land use, while
predominately single-family detached, should accommo-
date single-family attached, townhomes, and duplexes at
transitional areas on the edges of these neighborhoods,
along primary transportation corridors, and adjacent
higher intensity uses such as multi-family or commercial.
26 Land Use Plan • Elk River Comprehensive Plan
Page 76 of 110
165TH AVE NWJACKSONAVENWMAIN ST
N
W
MISSISSIPPI RD NW TYLER ST NWPROCTOR RD NWLANDERS
T
NWFILLMORE ST NWSCHOOL ST NW
193RD AVENW
175TH AVE NW
221ST AVE NW
TWINLAKESRDNWTWIN LAKES RD NWE
L
KL
AKE
RDNWU S H IG H WAY 1 0 N W PROCTORRDNW192ND AVE NWMEADOWVALE RD NW181ST AVE NWUS HIGHWAY 169 NW209TH AVE NW
221ST AVE NW
US
H
I
G
H
W
A
Y
1
0
N
W
RANCHRDNW ELKLAKERDNWCLEVELANDSTNWBROOKRDNW35 44
32
32
1
12
121
33
13
40
33
101
10
169
169
10
LAND USE CATEGORY
Rural Residential
Traditional Single-Family Residential
Mixed Residential
Multifamily
Mixed Use
Neighborhood Commercial
Highway Business
Business Park
Industrial
Parks & Open Space
Public/Semi-Public
Agriculture
Utilities & Railroads
Future Urban Service Area
LAKEORONO
Land Use Plan MISSISSI
PPI
RI
VE
RElk River Comprehensive Plan • Land Use Plan 27
Page 77 of 110
Mixed Residential Neighborhood
The mixed residential category consists of neighborhoods
with multiple housing types, including single-family
detached, townhomes, duplexes, and small scale multi-
family buildings. Mixed residential areas should include
existing residential neighborhoods where a gentle increase
in density is appropriate such as surrounding the down-
town as well as new neighborhood subdivisions.
Multi-family
The multi-family category includes higher density
apartment and/or condominium complexes in a master
planned setting with common open spaces and recre-
ational amenities. Multi-family areas make up the smallest
portion of the city’s housing stock and are primarily located
off of major roadways with proximity to commercial areas.
Highway Business
The highway business category primarily consists of a mix
of auto-oriented retail and service businesses, restaurants,
and community- and regional-scale shopping centers.
Highway business uses are located along Highway 169 and
Highway 10 and have high visibility from these corridors.
Mixed Use
The mixed use category contains all commercial and
supporting uses located in the historic core of the down-
town as well as desired expansion areas to the west and
north. Standalone commercial, multi-family, and mixed
use with commercial use on the ground floor and residen-
tial above are all included in the mixed use category.
Downtown housing along Main Street should be in mixed
use buildings with first floor/ground level commercial uses
and residential above. On the periphery of the downtown
core multi-family and mixed use are appropriate. The
downtown mixed use area is oriented towards pedestrians
and provides connections to the Mississippi River water-
front.
Neighborhood Commercial
The neighborhood commercial use category includes
local-serving commercial that provides surrounding
residents with daily goods and services like specialty food
stores, daycares, or cafés. Neighborhood commercial uses
are found near residential neighborhoods and reduce
the need to drive across the city for essential commercial
goods and services. Neighborhood commercial knits into
the fabric of both established and new neighborhoods and
complements these areas with appropriately scaled devel-
opment that emphasizes connections and 360-degree
architectural design.
28 Land Use Plan • Elk River Comprehensive Plan
Page 78 of 110
Business Park
The business park category primarily consists of office
and corporate campus development. This use is located
with access to major transportation corridors in the city
(Highway 169 and Highway 10) and utilizes the city’s natural
amenities such as its mature tree canopy and riverfront
views to create attractive campuses. In addition, business
park uses provide a transitional or buffer use between
higher intensity industrial and lower intensity residential
uses in the city.
Industrial
The industrial use category includes both heavy and light
industrial businesses such as manufacturing, ware-
housing, and excavation. These uses are primarily located
off of Highway 169, Highway 10, and the BNSF Railroad
which provide easy access for the transferring of goods
throughout the region.
Parks & Open Space
The parks and open space land use category includes
parks that provide both active and passive recreation
options as well as open space areas. Parks consist of public
parks owned and maintained by the city as well as private
parks in planned subdivisions. Open space areas include
preserves or maintained natural areas within the city in
addition to detention ponds and creeks within planned
subdivisions and commercial or industrial areas.
Public/Semi-Public
The public and semi-public use category includes local
government uses, municipal facilities, community service
providers, schools, and places of worship and assembly
such as City Hall, fire stations, churches, and Elk River’s
public schools. Coordination with schools and service
providers is key to ensure these essential facilites have
capacity and/or are located in areas that can support
growth and development as it occurs.
Agriculture
The agriculture use category includes land that is actively
being used for the production of crops, livestock, and farm-
ing-related activities. Farmhouses and very low-density
single family detached homes on the same parcel utilized
for agricultural production are also included in this cate-
gory. Agriculture is located primarily in the northern most
portion of the city beyond the Urban Service Area.
Utilities & Railroads
The utility and railroad use category supports local infra-
structure and provide right-of-ways or easements for
the transmission of gas, electric, water, and sewer. This
includes both facilities and infrastructure as well as related
right-of-ways.
Elk River Comprehensive Plan • Land Use Plan 29
Page 79 of 110
Page 80 of 110
CHAPTER 4HOUSING PLAN
The City of Elk River is comprised of historic residential neigh-
borhoods at its core, complemented by single-family subdi-
visions in the surrounding areas, and large lot rural housing
along the city’s northern fringe. Downtown Elk River features
mixed use development, while multi-family development
occurs primarily adjacent commercial developments along the
Highway 169 corridor and near the Northstar Line rail station.
Although the city has a mix of housing types, recent housing
trends, including low vacancy rates, indicate Elk River has pent
up demand for additional housing. The Housing Plan provides
policies and recommendations that will enable the city to meet
this demand and foster greater housing choice.
The plan provides guidance on housing reinvestment that
enhances existing residential areas, emphasizes infill housing
opportunities within the current Urban Service Area, and
informs strategic conservation driven development of new
residential neighborhoods. Further, the Housing Plan builds
off of the Land Use Plan to ensure that growth and develop-
ment reflects the desired vision of the Elk River community.
The Housing Character Areas map identifies key areas in the
community where the city should prioritize investment, resi-
dential infill, and expand opportunities for new residential
development that provide a greater diversity of housing options
in the community.
Elk River Comprehensive Plan • Housing Plan 31
Page 81 of 110
Housing Vision Statement
In 2035, the City of Elk River will provide a range of housing options from senior housing to entry level homes for
new families, and apartments and condos for recent college grads and young professionals. Infill housing develop-
ment downtown and in adjacent neighborhoods will reinforce the historic charm of the city and support the estab-
lished neighborhood character of the area. This will be complemented by the development of new neighborhoods
that include increased housing variety and provide more affordable options for both homeowners and renters as
the community grows.
Goal:
Encourage residential development with a variety of housing
types that fosters high-quality, livable neighborhoods to address
the needs of existing and future residents.
Policies:
• Target residential development.
• Support reinvestment and promote density .
• Encourage conservation design development.
• Foster greater housing choice.
32 Housing Plan • Elk River Comprehensive Plan
Page 82 of 110
Infill Duplex
Existing
Single-Family Home
Existing
Single-Family Home
Context Sensitive Infill
Contextually sensitive infill housing, like the duplex shown in
this diagram, can allow for increased density in established
neighborhoods in a manner that does not alter community
character.
The following section includes policies or strategies that can be applied to all housing in Elk River regardless of loca-
tion. More neighborhood-specific policies that support the character unique to each area of the city are included in the
following section.
City-wide Housing Policies
Promote Context Sensitive Infill
With much of Elk River’s core already built-out with estab-
lished residential areas, context-sensitive infill develop-
ment is vital to increasing housing choice moving forward
while preserving the cherished character of Elk River’s
neighborhoods. This includes supporting the development
of vacant or underutilized lots as well as redevelopment
of aging properties into higher density missing middle
housing types, discussed in greater detail on the following
pages.
To increase missing middle housing stock and provide
a greater variety of housing options, the city should
encourage context sensitive duplexes, quadplexes, town-
homes, courtyard buildings, and cottage courts. These
types of residential developments should follow standards
influencing building height, orientation, setbacks, and
other design characteristics to ensure compatibility with
surrounding development and neighborhood character.
Elk River Comprehensive Plan • Housing Plan 33
Page 83 of 110
Promote a Minimum Distribution of Housing Types in New Subdivisions
Elk River is challenged by a very tight housing market with
low vacancy and a need for housing units that are attain-
able to households across a range of income levels. The
city’s 2018 Comprehensive Housing Market Study found
that to meet the demand for housing through 2025 the
community needs to add a minimum of 690 new housing
units consisting of roughly 115 senior housing units, 235
rental units (combined market rate and affordable), and
320 owner-occupied housing units. As of October 2021, 35
age restricted units, 40 rental units, 68 affordable rental
units, and 342 single-family housing units have been
constructed.
To continue to meet this near-term housing demand and
accommodate long-term growth through 2035, the city
should be proactive in promoting the development of
a diverse mix of housing types, with a focus on missing
middle housing types. The city should consider revising
its subdivision development standards to require a
minimum range of housing types in new neighborhood
developments. For example, requiring a minimum of 10%
of units to be provided in duplexes/townhomes in all new
subdivision development would ensure that developers do
not exclusively build single-family detached homes and
provide missing middle housing types that include more
affordable options.
The Comprehensive Housing Market Study recommen-
dations should be used to help determine an appropriate
range for the required distribution of housing types.
Missing middle housing sits in the middle of the development
spectrum between single-family homes and mid-rise to high-
rise apartment buildings. This graphic illustrates the housing
types that typically make up missing middle housing in scale and
form and is intended to highlight the variety of housing options
included under the missing middle housing category.
Middle Housing Type Examples
34 Housing Plan • Elk River Comprehensive Plan
Page 84 of 110
Duplex (Side-by-side) – A one to
two-story detached structure that consists
of two dwelling units arranged side-by-
side, each with an entry from the street.
This type has the appearance of a small-
to-medium sized single-family house and
may include a rear yard.
Duplex (Stacked) – A two to two-and-a-
half-story detached structure that consists
of two dwelling units arranged one above
the other, each with an entry from the
street. This type has the appearance of
a small-to-medium sized single-family
house, may include a rear yard, and fits
on narrower lots than the side-by-side
duplex.
Quadplex – A detached two to two-and-
a-half-story structure with four dwelling
units, two on the ground floor and two
above, with shared or individual entrances
from the street. This type has the appear-
ance of a medium-sized single-family
house and may include a rear yard. This
type is attractive to developers by gener-
ating four units on a typical 65’- 80’ lot.
Courtyard Building – A medium-to-
large sized one to three-and-a-half-story
detached structure consisting of multiple
side-by-side and/or stacked dwelling units
oriented around a courtyard or series of
courtyards. The courtyard replaces the
function of a rear yard and is more open to
the street in low intensity neighborhoods
and less open to the street in more urban
settings. Each unit is accessed from the
courtyard and shared stairs provide access
up to three units.
Cottage Court – A group of small one to
one-and-a-half-story, detached struc-
tures arranged around a shared court
visible from the street. The shared court
is an important community-enhancing
element and unit entrances are from the
shared court. It replaces the function of a
rear yard. The rear-most building can be
up to two stories.
Townhome – A small-to medium-sized
attached structure that consists of three
to six multistory dwelling units placed
side-by-side. Entries are on the narrow
side of the unit and typically face a street
or courtyard. The street façades have
entrances and avoid garages.
Multiplex – A detached two-and-a-half-
story structure that consists of five to 12
dwelling units arranged side-by-side and/
or stacked, typically with a shared entry
from the street. This type has the appear-
ance of a medium-to-large sized single-
family home and does not include a rear
yard.
Triplex – A small-to-medium sized
detached structure with three to three-
and-a-half-stories that consists of three
units typically stacked on top of each
other on consecutive floors. Triplexes have
one entry for the ground floor unit and
a shared entry for those above. This type
does not include a rear yard.
Live-Work – A small- to medium-sized
attached or detached structure consisting
of one dwelling unit above or behind
a fire-separated flexible ground floor
space that can accommodate a range of
non-residential uses. This housing type is
typically two to three-and-a-half-stories
tall. The flex space and residential unit
typically have separate street entrances.
The flex space typically has a taller height,
minimum 10 feet, and a storefront. This
type does not include a rear yard.
Missing Middle Housing Types
Missing middle housing types range from low density duplexes to mid density multiplexes and triplexes and are under
represented in Elk River’s housing stock. These housing types provide opportunities for the city to increase the diversity
of its housing stock while maintaining the neighborhood character and small-town feel Elk River residents love. Missing
middle housing types that the city should consider accommodating more broadly include:
NOTE: Houseal Lavigne illustration based on
Congress for New Urbanism diagram of missing
middle housing types by Opticos Design, Inc.
Elk River Comprehensive Plan • Housing Plan 35
Page 85 of 110
35
72
Residential
Growth Area
Residential
Growth Area
Existing Residential
Neighborhoods
Potential Roadway
Extensions
Existing Tree Canopy
Preservation
SMART GROWTH
Encourage Quality Materials and Design
To ensure development reflects the community’s desire
for high quality and attractive housing, the city should
encourage the use of high quality materials, design, and
construction in all new development. The Pullman Place
Cooperative multi-family 65+ community living develop-
ment is a good example of high quality design and comple-
mentary architectural style that is context sensitive and
should be used as a model for future multi-family develop-
ment.
Practice Smart Growth
The city should practice smart growth that prioritizes infill
development and discourages greenfield development.
As infill opportunities become limited, expansion of the
Urban Service Area will be necessary. A smart growth
approach to the expansion of the Urban Service Area
would ensure that areas made available for new develop-
ment have access to municipal utilities, are not in a flood
hazard area or wetland, have access to roadways with
capacity to support additional traffic, and can be connected
to existing neighborhoods and destinations in the city.
To promote more efficient and sustainable development,
the city should establish standards of review for subdi-
vision applications that follow best practices in smart
growth. By establishing these standards, the city would
not only clearly communicate its preference for sustain-
able development, but would also ensure that elected
and appointed officials are protected from arbitrary and
capricious decisions regarding the approval or denial of
subdivision applications.
Proactively Up-Zone to Align with the Land Use Plan
The city should consider proactively up-zoning existing
neighborhoods, as identified in the Housing Plan, for
higher density housing. Municipal utilities currently
have the capacity to support higher density development
within these areas and permitting multi-family and mixed
residential in strategic areas would help alleviate housing
demand. By eliminating barriers to development, the city
will communicate to developers that higher density infill
development is a priority of the city. Up-zoning has the
potential to add more affordable market rate homes in
already well-connected and established neighborhoods
and expand housing choice.
36 Housing Plan • Elk River Comprehensive Plan
Page 86 of 110
CONSERVATION DESIGN
Existing Tree Canopy
Preservation
Clustered Development
Wetland Preservation
Trail and Sidewalk
Connections
Neighborhood Parkland
Water/Wetland
Retention Area
Connections to
Adjacent Neighborhoods
Trails
Creek Creek
Community Open Space
SteepTerrain SteepTerrain SteepTerrain
Detention Pond
WoodlandConservation WoodlandConservation
Creek
Community Open Space
WoodlandConservation
Conventional Development Pattern
• 18 Lots
• Minimum Lot Size: 80,000 sq. ft.
• No Undivided Open Space
Density-Neutral
• 18 Lots
• Lot Size Range: 20,000 - 40,000 sq. ft.
• 50% Undivided Open Space
25% Density Increase
• 24 Lots
• Lot Size Range: 12,000 - 24,000 sq. ft.
• 60% Undivided Open Space
Trails
Creek Creek
Community Open Space
SteepTerrain SteepTerrain SteepTerrain
Detention Pond
WoodlandConservation WoodlandConservation
Creek
Community Open Space
WoodlandConservation
Conventional Development Pattern
• 18 Lots
• Minimum Lot Size: 80,000 sq. ft.
• No Undivided Open Space
Density-Neutral
• 18 Lots
• Lot Size Range: 20,000 - 40,000 sq. ft.
• 50% Undivided Open Space
25% Density Increase
• 24 Lots
• Lot Size Range: 12,000 - 24,000 sq. ft.
• 60% Undivided Open Space
Conventional Development
Conservation Design Development
Practice Conservation Design
Conservation design subdivision development, also known as cluster
development, is an approach to residential development that preserves
contiguous areas of open space and natural areas by clustering smaller
residential parcels on select areas of a site. The overall housing density
within the development remains the same, but the site design allows for
larger areas of open space to remain intact and used to preserve wetlands,
floodplains, or other natural features, and shared as neighborhood or
community parkland. The Housing Character Areas map identifies
wetlands and floodplain areas throughout the city. Residential parcels that
are within the Urban Service Area and the floodplain and wetland overlay
should be considered for conservation design. To encourage this type of
development, it is recommended that the city update its subdivision ordi-
nance to include provisions for the allowance of this type of development
for residential and commercial development as well as business parks,
where appropriate. Provisions should include:
• Prioritized list of resources to be conserved including existing tree
canopy;
• Percent of total land area to be conserved as permanent protected,
public open space;
• Incentive for increased density in exchange for land conservation; and
• Design guidelines for the layout of streets, lots, and conservation areas.
Elk River Comprehensive Plan • Housing Plan 37
Page 87 of 110
Implement Green Infrastructure
The Elk River watershed spans 613 square miles and has
suffered from high levels of pollutants in the past. Since
1994, roughly 275 water improve ment projects have been
conducted on the watershed. Better water quality has
been recorded in both Lake Orono and Elk Lake over the
last 10 years, however these water bodies still exceed
the threshold for what the State considers a safe level
of bacteria. Water is an integral part of the city’s identity
and keeping it clean, safe, and accessible should be a top
priority. Impervious surfaces related to urban development
within the watershed are a major cause of pollutants such
as oil, metals, lawn chemicals, pet waste and other pollut-
ants reaching surface waters especially in extreme rainfall
and storm events.
To reduce the runoff of pollutants into the Elk River water-
shed the city should consider implementing development
standards for all new subdivisions that incorporate green
infrastructure design. Green infrastructure design strate-
gies include, but are not limited to the following:
• Utilize low impact design best practices to minimize
runoff and manage stormwater onsite;
• Pervious pavement on sidewalks, streets, and driveways;
• Planted medians and parkways with curb cuts to collect
water runoff;
• Use non-chlorine (road salt) snow and ice control;
• Fertilizer application control;
• Bioswales and raingardens to collect and naturally filter
water before it enters the watershed.
Example: green stormwater infrastructure
38 Housing Plan • Elk River Comprehensive Plan
Page 88 of 110
Gr
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E l k L ake Rd NW
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SIDEWALK & TRAIL CONNECTIONS
Establish Roadway/Sidewalk/Trail Network Connections
To promote connections between existing neighborhoods
and new developments, improve emergency service
response time, and reduce congestion at peak commute
travel times into and out of existing neighborhoods, the city
should establish a robust network of pedestrian and vehic-
ular connections. The city should consider establishing
subdivision regulations that require new developments
provide a minimum level of connectivity internally and
with adjacent neighborhoods. In addition, new develop-
ments should also provide connections to the existing trail
network following the Trails Master Plan and the Parks and
Recreation Master Plan.
The city should also consider establishing a street hier-
archy for subdivision streetscape elements that unify
future development. Requiring sidewalks with uniform
widths, parkways, and landscaping will improve connec-
tivity while enhancing aesthetic continuity between and
within neighborhoods.
Common Open Space
New developments in areas underserved by existing parks,
as identified in the Parks and Recreation Master Plan,
should also incorporate common open space to provide
passive or active recreation opportunities for residents.
Providing open space is especially crucial for new devel-
opment in the northern portion of the city, as much of this
area is outside of the city’s neighborhood park service area
walkshed. This means homes in this area are not within
walking distance of a park.
Elk River Comprehensive Plan • Housing Plan 39
Page 89 of 110
165TH AVE NWJACKSONAVENWMAIN ST
N
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MISSISSIPPI RD NW TYLER ST NWPROCTOR RD NWLANDERS
T
NWFILLMORE ST NWSCHOOL ST NW
193RD AVENW
175TH AVE NW
221ST AVE NW
TWINLAKESRDNWTWIN LAKES RD NWE
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KLAKE
RDNWU S H IG H WAY 10 NW PROCTORRDNW192ND AVE NWMEADOWVALE RD NW181ST AVE NWUS HIGHWAY 169 NW209TH AVE NW
221ST AVE NW
US
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RANCHRDNW ELKLAKERDNWCLEVELANDSTNWBROOKRDNW35 44
32
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10
Character Areas
Rural Residential
Established Neighborhoods
Downtown/Uptown
Downtown Neighborhood
Station Area Residential
Ranch Road Corridor
Twin Lakes Road Corridor
Gravel Mining Area
Riverfront Residential
Wetlands and Floodplains
Future Urban Service Area
LAKEORONO
Housing Character Areas
While the policies and strategies described in the City-wide Housing
Policies section apply to all neighborhoods in Elk River, the variety and
unique character of residential areas throughout the city requires a more
targeted approach to planning. This section identifies the city’s distinct
neighborhoods by desired development and character, and provides
specific policies to preserve community image, increase density, or
expand housing options in these portions of Elk River.MISSISSI
PPI
RI
VE
RRiverfront Trail Public Easement
40 Housing Plan • Elk River Comprehensive Plan
Page 90 of 110
Rural Residential
Rural residential areas include established rural residen-
tial developments in the north of the city. Rural residential
is located outside of the Urban Service Area and is not
connected to any municipal utilities. As such, these devel-
opments typically utilize septic and wells for sewer and
water. Rural residential features large lots that are typically
located off of arterial roadways. While large lots are the
primary type of development, the rural residential char-
acter area also includes some subdivision developments.
Because rural residential is located outside of the Urban
Service Area it is not recommended for increased residen-
tial development.
Encourage Trail & Sidewalk Connections
While many of the existing rural residential subdivisions
have limited sidewalks and connections to neighboring
subdivisions, they are well positioned to incorporate
extensions to the city’s adopted Trails Master Plan network.
Elk River should encourage the creation of these trail and
pathway connections throughout existing rural residential
neighborhoods as infrastructure maintenance occurs. This
will promote walkability and connect residents to the city’s
parks and other destinations. In addition, the city should
also encourage new rural residential development incor-
porate sidewalks, make connections to adjacent neighbor-
hoods, and provide access to the city’s trail network.
Shared Septic
Many rural residential areas utilize shared septic systems
for wastewater treatment. As these systems age, they
become increasingly expensive to maintain. The Windsor
subdivision development in the northwest of Elk River has
already reached out to the city to request municipal service
extension to connect their shared septic system into the
city’s service lines.
In the future, the city may be asked to connect more devel-
opments into the municipal sewer system. As such, the
city should be prepared to handle these requests and work
with residents and the Public Works Department to design
a balanced approach for such service extensions in the
future. The Infrastructure and Urban Service Area Manage-
ment Plan chapter further elaborates on how shared septic
systems can be connected to the Elk River municipal sewer
system.
Example: Area with shared septic in Elk River
Elk River Comprehensive Plan • Housing Plan 41
Page 91 of 110
Established Residential
Established residential areas include stable neighborhoods
or subdivisions with primarily single-family detached
development. The majority of these neighborhoods were
built over 40 years ago in the north, west, and more
recently in the east of the city. Established residential areas
are within the existing Urban Service Area and are directly
connected to municipal sewer and water. Established
residential areas include a variety of block layouts but are
primarily curvilinear. Many of the existing established resi-
dential neighborhoods feature sidewalks and connections
to adjacent neighborhoods.
Strategic Infill
While much of the established residential areas in the city
are built out, there are still opportunities for infill develop-
ment. Areas of strategic infill development, as identified
in the Housing Character Areas map, are intended to fill
gaps between existing neighborhoods. In addition, stra-
tegic infill should be contextually sensitive to surrounding
development and provide opportunities to further expand
pedestrian and vehicular mobility between neighborhoods
and across the city. As such, it is key that infill development
provide a robust network of sidewalks and roadways that
link up to existing roadways/sidewalks/paths in adjacent
neighborhoods.
Expand Pedestrian Connections
Existing pedestrian routes within established residen-
tial areas should be tied into the future trails network as
roadway improvements are made to provide seamless
connections and access to key destinations in the city.
New development should provide a complete network of
sidewalks and roadways that support access to adjacent
neighborhoods and provide seamless ties to the city’s trail
network that make it easy to walk, bike, or drive.
Encourage Density
The majority of established residential areas consist of
only single-family detached home. Although the character
of these neighborhoods is desirable, they do not maximize
the development potential of residential land within the
city’s Urban Service Area. Mixed residential development,
which encourages a range of compatible housing types
within a single residential development, is one strategy
that should be used to accommodate greater variety within
Elk River’s housing stock and allow for more flexibility to
build desirable and more dense residential development.
Mixed residential should also be utilized to provide a buffer
from lower intensity traditional single-family neighbor-
hoods to higher intensity uses such as multi-family, mixed
use, or commercial development.
42 Housing Plan • Elk River Comprehensive Plan
Page 92 of 110
Attached
ADU
External
ADU
Basement
Internal ADU
Attic
Internal ADU
Accessory Dwelling Units (ADU)
Accessory dwelling units can be designed and permitted through a
variety of configurations. This diagram represents three of the most
common configurations. ADU design should fit within the context of
the existing residential neighborhood.
Downtown Neighborhoods
Downtown neighborhoods, as highlighted on the Housing
Character Areas map, include the residential neighbor-
hoods surrounding the downtown. Downtown neighbor-
hoods feature some of the oldest homes in the city with
construction of some dating back to the turn of the 20th
century.
Promote Accessory Dwelling Units
Accessory Dwelling Units (ADUs) sometimes called
“granny flats”, can provide for greater density in existing
single-family neighborhoods without altering established
community character. ADUs also provide opportunities for
multi-generational housing, supporting parents or grand-
parents who downsize.
The city should consider updating its land development
regulations to allow ADUs in all mixed residential and
single-family neighborhoods, especially those surrounding
the downtown. The update should include design stan-
dards that ensure ADUs are contextual and do not alter the
overall character of neighborhoods, whether the ADU is
internal or attached to the primary residence or external
of the primary residence and above or in the place of a
garage. Design standards could control the location of ADU
entrances to minimize visibility from the street, control
bulk and massing to ensure the design of the structure
reflects the design of the primary residence, and more.
Elk River Comprehensive Plan • Housing Plan 43
Page 93 of 110
Reinvest in Existing Housing
Investing in the oldest homes built in Elk River not only
improves the appearance and overall attractiveness of
historic neighborhoods and the vibrancy of the down-
town, but also helps support the largest source of naturally
occurring affordable housing in the community. Studies
completed by the U.S. Department of Housing and Urban
Development (HUD) have found that older houses typically
maintain lower rents and sales prices than newer housing
and as such make up the majority of affordable non-gov-
ernment subsidized housing across the United States.
The city should work alongside the Housing and Rede-
velopment Authority (HRA) to encourage and enforce the
continued maintenance and reinvestment in these critical
neighborhoods to ensure a healthy, diverse, and affordable
housing stock is available to residents of Elk River.
Waive License and Permit Fees Associated with Maintenance
Reinvestment into the exterior of a home can be expensive
and time consuming. Although most costs are associated
with materials and labor, other costs may stem from the
fee to place a dumpster or receive a license or permit. The
city should consider working with a contracted partner
for trash collection to waive these fees for a limited time
period every year to encourage homeowners to reinvest in
their properties. For example, the city could allow dump-
sters to be placed on the street for groups of five or more
neighbors looking to improve their homes.
Encourage Expansions of Existing Single-Family Detached Homes
Many homes in the downtown neighborhoods have
considerable yard space before they would be restricted
by rear setback requirements. However, the maximum
lot coverage for these parcels is a major restriction to
any expansion of these homes. Making it easy to expand
existing single-family detached homes can help diver-
sify the overall housing stock in the city and also allow
homeowners to meet the needs of their growing family,
modernize their homes, and make them more marketable
in the long run, while still fitting within the existing neigh-
borhood character. The city should encourage expansions
by reducing barriers to design, permitting, and construc-
tion through a variety of means such as:
• Assessing and amending residential district bulk and
dimensional standards to allow for higher lot coverage;
• Waiving or reducing permitting fees on certain project
types;
• Providing community information sessions on how
to complete permit applications for homeowners
completing their own work;
• Providing assistance to homeowners on how to find a
licensed contractor in the city;
• Providing information sessions/guidance on how to
schedule inspections once work is complete; and
• Expanding inspection times to include weekends and/or
hours after the standard workday from 5:00-7:00 p.m.
In addition, the city should also advertise the Housing and
Redevelopment Authority (HRA) as a key resource for low
and moderate income homeowners looking to complete
home expansions in Elk River. The HRA is a public corpora-
tion empowered to undertake certain types of housing and
redevelopment projects in the city. The HRA has resources
and funds available for homeowners to make improve-
ments to their properties located within the Urban Service
Area.
44 Housing Plan • Elk River Comprehensive Plan
Page 94 of 110
Downtown/Uptown
The downtown/uptown area consists of a mix of uses
including commercial, multi-family, and mixed use
developments with residential units or offices above
ground floor commercial space. The building stock in the
downtown/uptown area features some of the most historic
structures in the city. Although this is a great asset, it also
presents unique challenges related to maintenance, adap-
tive reuse, and the ability to meet current market demand.
In addition, the built-out nature of the historic downtown
provides limited opportunities for infill which makes rede-
velopment a key aspect of supporting housing in the area.
Leverage the Waterfront
The Mississippi River is a fantastic amenity that provides
recreation, leisure, and waterfront views that are extremely
attractive to residential developers. The city should
leverage this asset to require developers in the downtown
to create new public connections to the waterfront and for
properties along the water’s edge to provide a public ease-
ment for the future Mississippi River Trail extension. See
the Economic Development Plan chapter for more details
on how the waterfront can be utilized to leverage desired
development and connections.
Downtown Mixed Use
Rivers Edge Commons Park
Elk River Comprehensive Plan • Housing Plan 45
Page 95 of 110
Source: Google Street View
Riverfront Residential
The northern portion of the Riverfront Residential area is
identified for high density housing along the riverfront to
take advantage of river views and to provide public river-
front access and amenities. Due to this area’s proximity to
the busy Highway 10 commercial corridor, deep setbacks
and landscape buffering should be encouraged to ensure a
pleasant residential environment.
The southern portion of the Riverfront Residential area,
should be developed as mixed residential with a combina-
tion of small lot single-family detached homes, duplexes,
and townhomes. This area is an extension of the existing
residential areas along Yale Street and should be well
connected to these existing homes. Common recreational
amenities should be included in future development and
take advantage of the adjacency to the river.
Further, the city contains many mature trees which provide
numerous benefits to the community including shade,
wildlife habitat, and aesthetic character. Wherever possible
mature trees should be preserved and incorporated into
new development as open space amenities and utilized
to buffer or screen residential and lower density develop-
ments from higher intensity land uses such as commercial
and the highway.
Station Area Residential
The area directly surrounding the Northstar Station is
identified for mixed residential with multi-family directly
adjacent the station. This area should be developed with
multiple connections to surrounding developments that
provide easy access to commercial uses to the south and
promote walkability with a complete network of sidewalks.
The area north of the Northstar Station, identified as “Hill-
side Heights” in the FAST District Plan, is recommended for
mixed residential development. This area should provide
a transition to lower density housing to the north of 175th
Avenue to seamlessly integrate into the existing residen-
tial neighborhoods surrounding the site and to fill the gap
between them. In addition, new housing development
should complement existing housing in the subarea and
leverage the existing natural amenities including wetlands
and woodland views, preserving tree canopy and these
natural amenities utilizing best practices in conservation
design where possible.
46 Housing Plan • Elk River Comprehensive Plan
Page 96 of 110
35171st. Avenue Focused Area STudy
The master plan for the 171st Avenue FAST outlines a course for change over a 25
year planning horizon. The FAST will ultimately become a series of unique districts
showcasing residential, offi ce, retail and industrial uses within the naturalized setting
of Elk River. The master plan acknowledges signifi cant transportation pattern changes
and respects uses adjacent to the study area. The master plan guides land use and
transportation changes for the area allowing near term investment always with an eye
toward the future vision.
5Development Framework
Page 97 of 110
171st. Avenue Focused Area STudy136
DEVELOPMENT FRAMEWORK
HIGHLIGHTS
Intensifi ed mixed-use at transit station: » Over time, as the Northstar line matures and more
people are looking for convenient access to transit, the area around the transit station will
emerge as a prime location for housing, offi ce and neighborhood retail with a compelling village
atmosphere.
Diverse employment base: » The master plan suggests a focus on a creating a range of job
opportunities beyond a living wage for Elk River. Industrial uses will promote a focus on
manufacturing, energy and green business and commercial and office uses will create for
opportunities from science and technology to research and development.
Eco-business park: » An ecological focus for the future industrial uses leverages the “Energy City”
brand of Elk River. Opportunities for shared facilities, reduced energy and emissions and re-use
of manufacturing by-products will position the area as one of Minnesota’s fi rst “Zero Waste”
business park.
Residential villages: » Building on the success of Elk River Station, the master plan suggests areas
for a dense, compact and urban form of residential development, These distinctive villages
uniquely responding to the site by taking advantage of natural amenities and topography and
supply residents with a range of housing options and lifestyle choices.
Strengthened pedestrian connections: » A network of recreational trails and comfortable
sidewalks will knit together the study area with enhanced walking and biking experiences. This
system of public, highly pedestrian spaces and facilities will provide a crucial amenity framework
for high-quality development and redevelopment.
Enhanced natural systems & open space amenities: » Building on the framework established
by the large wetlands and surrounding city parks, the master plan suggests opportunities for
additional public parks, plazas and urban spaces. Preservation of signifi cant landscape features
are critical steps to ensuring the essence of the FAST and the Elk River scenic landscape.
Near term & long term focus: » With the impending transportation changes to the adjacent
regional highways, the master plan suggests ways for development to occur in a shorter window
of time while at the same time outlining the necessary steps to ensure near term development
blends with the future development and transportation patterns.
Land Use:
The Future Development Framework Plan,
Figure 5.2, illustrates the major patterns
of development, transportation and open
spaces shaping the vision for the 171st
Avenue FAST.
The Future Development Framework Plan
prescribes land use categories ranging
from commercial and industrial uses
to a new mixed-use transit center with
density ranges from 24-32 units per acre.
Figure 5.3 depicts ranges of density and
intensity for each land use type. This land
use typology, more clearly articulates the
development intensity, building scale,
and general character for each of the land
uses.
In general, land use designations vary
slightly from the 2003 Comprehensive
Plan. The mixed-use designation becomes
more prevalent and depending on specifi c
areas within the project area, certain
mixed-use designated areas are targeted
toward commercial or retail use, while
other areas guide office or residential
uses. Figure 5.1, the Development Yield
Summary, outlines the projected level of
development for each land use.
For the purposes of further discussing
land use and development character, the
171st Avenue FAST has been divided into
sub-area as illustrated in the following
chapter. Figure 6.1, highlights the various
sub-areas within the development
framework plan.
Figure 5.1: Development Yield Summary
Land Use
Retail Office Industrial
Acres Units Sq. Ft. Sq. Ft. Sq. Ft.
Existing Residential 55 52
Higher Density Residential 155 1,675 - 2,230
Transit Center 120 400 - 530 35,000 1,450,000
Service / Commercial 35 15,000 15,000
Destination Retail 45 810,000
Temporary Destination Retail 25 65,000
Jobs Area 245 430,000 3,632,000
Open Space 250
Totals:930 2,127 - 2,812 925,000 1,895,000 3,632,000
Page 98 of 110
37171st. Avenue Focused Area STudy
DEVELOPMENT FRAMEWORK
Figure 5.2: Future Development Framework Plan
Future Development Framework Plan
Northstar Business
Park
Elk River Station
RDF Plant
175th Avenue
173rd Avenue
171st Avenue Twin Lakes Parkway10 / 169 HighwayMississippi RiverPage 99 of 110
171st. Avenue Focused Area STudy138
DEVELOPMENT FRAMEWORK
Open Space: 250 AC.
Natural Features, Visual Amenity *
Stormwater Filtration *
Wildlife Habitat and Movement *
Corridors
Agriculture Production and *
Research
View sheds *
Trails *
Wl dMii i
Temporary Destination
Retail: 25 AC.
1 Story Buildings *
Surface Parking *
Long Term Lease - Notice of timeline *
for future interchange
Jobs Area: 245 AC.
1 - 3 Story Buildings *
Surface Parking *
Service/Commercial:
35 AC.
1 - 2 Story Buildings *
Surface Parking *
Retail/OfÀ ce uses *
Destination Retail: 45 AC.
1 - 2 Story Buildings *
Surface Parking *
Transit Center: 120 AC.
2 - 5 Story Buildings *
On-Street / Structured Parking *
Ground Level Retail/OfÀ ce/ *
Industrial
Upper Level/OfÀ ce/Residential *
Density Range: 24 - 32 du/ac *
Higher Density
Residential: 155 AC.
3 - 4 Story Buildings *
Surface Parking, Structured Parking *
Housing Types: Apartments, *
Condominiums, Lofts, Senior
Housing
Density Range: 24 - 32 du/ac *
Existing Residential:
55 AC.
Single family, duplexes, townhomes *
and multiple-family dwellings
Average density range: 3 - 4 du/ac *
Figure 5.3: Land Use Types
Land Use Types
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39171st. Avenue Focused Area STudy
DEVELOPMENT FRAMEWORK
TRANSPORTATION INFRASTRUCTURE:
Highway 10/169
As the expert panel indicated early on in the master plan process, Highway 10/169 is
the key for success of the 171st Avenue FAST. The presence of the regional highway
provides the traffic and visibility making retail, commercial, office and industrial
development possible. The transition of Highway 10/169 to a freeway will be a
signifi cant trigger for development and redevelopment and integral to the roadway
change will be the placement of the future interchange.
Future Interchange
The location of the future interchange has signifi cant land use impacts. The master
plan examined numerous scenarios for the interchange. Option A worked the best to
balance the desires of the existing businesses for the interchange to be as far north as
possible without compromising the existing single family neighborhood to the west.
This location coupled with the direct routing of Twin Lakes Parkway to the interchange
provide a direct route to the Northstar commuter station. Ultimately, the location
of the interchange is closer to the built environment and will likely increase property
values further into the built area and increase the chances of broader development
areas benefi ting from the interchange.
Additional Considerations for Highway 10/169
In 2012, MN DOT plans a resurfacing of Highway 10/169. As part of this project, it is
understood that MN DOT will be closing all medians except for 171st and 165th Avenue
for safety reasons. Altering access points in this manner will likely initiate some
turnover for uses along Highway 10/169 and strengthen the need for more internal
roadway connectedness. In the future, the city should work with MN DOT to further
investigate overpass options near 171st Avenue to better connect the land uses west
of Highway 10/169 to the study area.
Rail Line
The master plan suggests providing an additional crossing of the BNSF rail line near
173rd Avenue. This additional crossing will allow for improved traffic flow for the
commercial and industrial uses in the north of the study, rather than funneling all traffi c
to Twin Lakes Parkway to cross the rail line. As the city lobbies to shift the rail line
north near downtown, the city should investigate the feasibility of either an at-grade
or grade separated crossing in this location. While creating an additional crossing is
challenging, it is still worthwhile as something to strive for to create better and more
intensive development.
The opportunity for a rail spur off of a major freight rail corridor could be signifi cant
for industrial uses in the FAST. The master plan suggests a parallel spur line to serve
the industrial uses surrounding the RDF plant.
An additional rail crossing should be considered at
173rd Avenue
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171st. Avenue Focused Area STudy140
DEVELOPMENT FRAMEWORK
Figure 5.4: Transportation Infrastructure Diagram
Transportation infrastructure Diagram
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41171st. Avenue Focused Area STudy
DEVELOPMENT FRAMEWORK
GREEN INFRASTRUCTURE:
The Mississippi River, expansive wetlands, native oaks, and pine groves provide a
distinct character for the project area. The protection and enhancement of these
landscape features are important elements to retain as development occurs in the
district. These natural features provide added value to surrounding development
and provide recreational opportunities when public trails are integrated to the open
space network. This master plan suggest establishing a framework for development
patterns centered around existing natural systems, stormwater treatment, parks and
open space and trails, or green infrastructure.
Open Space, Wetlands, Natural Features
The development pattern in the FAST is truly shaped by natural features. With almost
25% of the land area in the wetlands or fl oodplains, these natural systems are highly
visible and contribute to the scenic character of the area. The northern and southern
wetland reaches provide natural breaks between development zones, and the plan
promotes providing increased public access to the edges of these natural systems. The
plan also encourages the preservation native vegetation. As development occurs and
where appropriate, existing topography and larger stands of existing trees should be
preserved to maintain the scenic character for the FAST.
Parks
The master plan suggests the potential creation public park space along the river front
and in the Northern Heights sub-area and a strong connection north to Hillside City
Park. A number of public parks are adjacent to the site and connections to these parks
are important to attract residents and employment to the study area.
Viewsheds
Viewsheds into the site from along Highway 10/169 are important to signify the
FAST project area. Site designs refl ective of the natural setting of Elk River should
be considered. Internally, the large wetlands aff ord sweeping views of the natural
landscape and development should take advantage of these assets.
Stormwater Treatment
T he master plan encourages the stormwater infrastructure features such as
stormwater ponds, infi ltration basins and bio-swales are designed as natural open
space amenities for the surrounding development. Furthermore, these features
should be interconnected to the broader system of wetlands and natural areas as
illustrated through the Pinnacle and Offi ce Village sub-areas.
Urban Forest
The master plan encourages the preservation of existing vegetation and establishing
a strong canopy of urban street trees throughout the FAST.
The natural systems are highly visible and contribute
to the scenic character of the site.
Wetlands occupy 25% of the land area
Connections to nearby parks are important
Stormwater treatment as an amenity
Page 103 of 110
171st. Avenue Focused Area STudy142
DEVELOPMENT FRAMEWORK
Green infrastructure diagram
Figure 5.5: Green Infrastructure Diagram
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43171st. Avenue Focused Area STudy
DEVELOPMENT FRAMEWORK
TRANSIT SYSTEM:
Northstar Commuter Rail Station
The Northstar commuter rail is a plus for growth in the FAST area, but not a primary
driver for change. As the system matures and ridership grows it is important the
station meets the demands of the patrons. Adequate parking will be a necessity. While
the current lot provides 700 spaces, additional space may be needed in the future. A
parking deck or ramp structure should be considered for the station in consideration
with mixed-use development before more surface parking spaces are added since little
land exists for development immediately adjacent to the station. Providing adequate
facilities for bike commuting are also suggested. Bike lockers allow a safe, secure
location for commuters to store their bikes. A well integrated trail system will further
promote bike commuting to the Northstar station.
Community Circulator Bus
With the potential for more increased reverse commute trains, the city of Elk River
should examine the feasibility of a community circulator bus to work in concert with
the Northstar schedule. The circulator would connect community employment
centers, downtown and commercial centers to the Northstar station eliminating the
need for the automobile for some commuters.
IMPACT ANALYSIS:
A fully developed plan for the 171st Avenue FAST will impact the existing public
infrastructure systems in the area. With the introduction of development and
redevelopment in portions of the project area, improvements to the public systems
will be necessary and advantageous to foster more intensive development.
Roadway and Traffi c Analysis
As the master plan for the 171st Avenue FAST indicates, the road network is critical to
the long-term success of all uses within the plan, especially when access restrictions are
implemented along Highway 10/169. It is anticipated that upgrades to the intersection
at 171st Avenue and Highway 10/169 addressing grading, sightlines and stacking will be
needed as development occurs in the FAST. Additionally, internal roadway connections
from development areas will need to be designed to mesh with the extension of Twin
Lakes Parkway to the south through the Gateway in order to facilitate traffi c fl ow
through the area.
Infrastructure
Initial analysis by City staff of the sewer and water indicates that upgrades to major
infrastructure systems will be needed at some point during the development time
line. Most impacts will come from realignment of sanitary sewer and water lines with
roadway improvements. The overall capacity for sanitary sewer and water fl ows will
need to be further studied as development proposals come forward. Additionally,
further electrical network planning will need to occur in the project area.
A parking deck or ramp may be needed in the future
to accommodate increased demand for the Northstar
commuter rail.
Bike lockers allow a secure location for commuters to
store their bikes
A circulator bus would connect other key activity
centers in Elk River with the Northstar station
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171st. Avenue Focused Area STudy146
DEVELOPMENT CHARACTER
Figure 6.1: Development Character - Sub Area Diagram
Development Character - Sub Area Diagram
175th Avenue
165th Avenue
173rd Avenue Twin Lakes Parkway10 / 169 HighwayPage 106 of 110
171st. Avenue Focused Area STudy154
DEVELOPMENT CHARACTER
Residential Neighborhood Districts
K LIEV ER’S M ARSH AND R I V ER W E S T
RESIDENTIAL NEIGHBORHOODS
The existing residential uses surrounding
Kliever’s Marsh and nestled along Yale
Street along the Mississippi River are not
anticipated to see and signifi cant change
as a part of the FAST study.
ELK RIVER STATION
Elk River Station is a
successful model for
higher density
housing near the
transit station. The
development
provides multiple
housing options, in a
well organized,
compact development pattern.
Existing Elk River Station with a range of housing types
Existing Single Family Homes Surrounding Kliever’s Marsh
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55171st. Avenue Focused Area STudy
DEVELOPMENT CHARACTER
HILLSIDE HEIGHTS
This district showcases
a range of housing
options and takes
advantage of wetland
views and wooded
rolling topography. A
design priority will be
creating a physical
connection between
Hillside City Park to the north and the
large wetland complex on the southern
boundary and developing park spaces
and a continuous public trail network
along the periphery of the wetland.
T he internal street network connects
with the existing street network on
adjacent property and establishes smaller
organized development parcels within the
district. Housing types respect adjacent
uses by scaling down from larger stacked
housing near the intersection of 175th
Avenue and Twin Lakes Parkway to more
detached villa & townhome housing types
near the existing single-family uses to the
east.
Building placement emphasizes the
street within the center of the district,
taking advantage of long views across
the wetland and preserving existing
woodlands in the north. High quality
streetscapes with sidewalks, boulevard
trees and pedestrian scaled lighting
should be considered on all streets of the
district.
Hillside Heights District Vignette Study
175th. Avenue175th. Avenue
Twin Lakes ParkwayTwin Lakes ParkwayDistrict District
boundaryboundary
Elk River StationElk River Station
Kliever’s Kliever’s
MarshMarsh
Hillside ParkHillside Park
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171st. Avenue Focused Area STudy156
DEVELOPMENT CHARACTER
Twin Lakes Parkway Section (Mixed Use District)
LOCAL STREET NETWORK CHARACTER
The street system changes in the master plan are suggested in order to improve traffi c
circulation and pedestrian connectivity to the rest of the community. The majority of
roadway alterations are integrated to extension of Twin Lakes Parkway south to the
future interchange and the conversion of Highway 10/169 to a freeway.
Twin Lakes Parkway
Twin Lakes Parkway provides the infrastructure framework for organizing future
development and redevelopment in the study area. The master plan envisions
the roadway as a four lane collector with a planted median with a 40 mile an hour
design speed, and lower speeds through the Station Area Village sub-area. Access
management along the roadway defi nes the development pattern and general parcel
confi gurations for numerous uses. Full intersections require a minimum of one-eighth
mile between them, while right-in, right-out access occurs at roughly 300 feet intervals.
The master plan suggests the use of round-a-bouts at major intersections along Twin
Lakes Parkway through the study area; 175th Avenue and 171st Avenue. Round-a-
bouts in these locations will aid in traffi c fl ow and will be designed with large radius
and roll-up aprons to accommodate truck traffi c. A traffi c signal is suggested for the
intersection at the transit station providing a safe crossing and to benefi t the retail
uses in the mixed use district. The 120’ right-of-way for Twin Lakes Parkway should
continue throughout the project area.
Commercial Street
Twin Lakes Parkway
Residential Street
Offi ce/Industrial Street
Pedestrian Zone Pedestrian ZoneTravel Lanes Travel LanesMedianOn-Street
Parking/Corner
Bumpouts at
Mixed-use only
On-Street
Parking/Corner
Bumpouts at
Mixed-use only
Streetscape typology diagram
Page 109 of 110
57171st. Avenue Focused Area STudy
DEVELOPMENT CHARACTER
Residential Streets
Streets within residential districts organize the development pattern into a curvilinear
grid responding to natural systems & topography. These streets are traditional in
character with opposing drive lanes, on-street parallel parking, turf boulevards,
sidewalks, street trees and lighting. Residential streets have a 60’ right-of-way.
Commercial Streets
Commercial streets in mixed-use and
retail areas have extensive streetscape
elements. S ite furnishings such as
benches, bike racks and trash receptacles
should be installed on wide sidewalks.
Pedestrian scaled street lighting and
boulevard trees will provide separation
from the street. Commercial streets have
a 70’ right-of-way.
Residential Section
Commercial Street Section
Pedestrian
Zone
Pedestrian Zone
Pedestrian
Zone
SetbackSetback
Amenity ZoneOn-Street ParkingTravel Lanes
Blvd.
Blvd.
Blvd.Travel LanesOn-Street
Parking
On-Street
Parking
Page 110 of 110