4.4. & 4.5. SR 02-17-1994
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ITEM 4.4. AND .4.5.
MEMORANDUM
TO: MAYOR AND CITY COUNCIL
FROM: STEVEN B. ACH, CITY PLANNER4d..----
DATE:
FEBRUARY 17,1994
SUBJECT: COMPREHENSIVE LAND USE PLAN
AMENDMENT, CASE NO. LUA 93-1 AND
LUA 93-2
ISSUE
A.) Request by Marv Prochaska to amend the Comprehensive Land Use Plan
Map by changing approximately 20 acres from LI (Light Industrial) to HB
(Highway Business), Case No. LUA 93-1.
B.) Request by Country Ridge Partnership to amend the Comprehensive
Land Use Plan Map by changing approximately 24 acres from LI (Light
Industrial) to HB (Highway Business), Case No. LUA 93-2.
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These are two separate planning cases, however, they have been incorporated
into one staff report because of their proximity to one another, identical
issues, and both relate to a possible development proposal.
LOCATION
The two applications affect roughly 45 acres at the southwest corner of
Highway 10 and the Joplin Street alignment.
FOCUS AREA STUDY
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In 1990, BRW Inc. completed a Focus Area Study analyzing land use and
transportation alternatives for an area generally lying west of City Hall
between Highway 10 and County Road 30. The study outlined a variety of
residential, commercial, and industrial land uses. One of BRW's
recommendations was to create a business park zoning designation and
establish a business park between Joplin Street and Waco Street. The
business park concept would consist of approximately 150 acres and include
uses such as light manufacturing, offices, office-warehouse, and office show
room buildings. In addition, complimenting commercial would consume
approximately 26 acres and serve a supporting role to the business park and
surrounding residential area.
P.O. Box 490 · 13065 Orono Parkway · Elk River, MN 55330 · (612) 441-7420 · Fax: (612) 441-7425
Land Use Amendments
January 17, 1994
Page 2
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On September 17, 1990, the City Council adopted Resolution 90 - _, which
incorporated the Focus Area Study as an addendum to the City's Growth
Management Plan. Subsequently, a land use designation of LI (Light
Industrial) and a zoning of PUD (Planned Unit Development) were made to
the respective land use and zoning maps to coincide with the Focus Area
Study. With the completion of these actions, the foundation for a business
park and complimenting commercial was now in place.
PURPOSE OF COMPREHENSIVE LAND USE PLAN
The Comprehensive Land Use Plan is the document that serves as a guide to
the long range development of a community. Typically, the Comprehensive
Plan is updated every five to eight years to reevaluate changes that have
occurred in the community and assess those changes against the Plan's
present goals and objectives. The Comprehensive Land Use Plan is a
document which is neither cast in concrete, nor should it be randomly
amended. The Plan could be considered the strategic development plan that
brings together the continuity and compatibility of the community's growth
pattern. The Plan's comprehensive approach helps to avoid reactionary
decisions and preserves the integrity of a community's planning process.
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WEST HIGHWAY 10 CORRIDOR
Since the Focus Area Study was adopted in 1990, water and sewer have been
extended to the eastern limits of the study area. For the most part, there has
been limited development activity within the study area. However, recently
a major manufacturing company considered a 20 acre site at the southwest
corner of Joplin Street extension and Highway 10 to relocate their facility.
Unfortunately, the company chose a site in another community that has City
utilities and street immediately available to their selected site. Nevertheless,
this company's interest in the west Highway 10 corridor, even without City
utilities and streets in place, demonstrates the possibility and potential for a
business park along west Highway 10.
As the metropolitan area continues to expand and roadways (such as
Highway 101) are upgraded, interest from industrial businesses will continue
to grow. Over the past year staff has received a number of inquires from
business prospects wanting to build 15,000 to 40,000 square foot industrial
buildings. Granted not all these inquiries materialize, however, this again is
a signal that industrial interest in Elk River is growing and the concept of a
business park can be an appropriate plan for the west Highway 10 corridor.
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Land Use Amendments
January 17, 1994
Page 3
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ANALYSIS
As the Council has been made aware, Menards has been looking for a site in
the Elk River area for the past few years. The most recent site selected by
Menards includes two separate parcels; one being 20 acres and the other 25
acres. A conceptual development plan has been submitted to the City for the
easterly 25 acre parcel (Case No. LUA 93-2) illustrating a commercial
development of approximately 290,000 square feet. If the 20 acre parcel to
the west (Case No. LUA 93-1) was included as an extension to this
commercial development, the total square footage of commercial in this area
could reach upwards of 450,000 square feet. To accommodate this
development scenario, the Comprehensive Land Use Plan would have to be
amended to reflect an underlying land use of HB (Highway Business). The
existing zoning of PUD (Planned Unit Development) would remain in place
providing for a review process by the Planning Commission and City Council
similar to the Elk Park Center project.
Prior to considering this Land Use Plan change, it is important to recognize
and evaluate the following issues:
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. Assess the inventory of available industrial and commercial property for
development.
. Concentrating regional commercial activity along Highway 169 corridor.
. Endorsing and making a long term commitment to developing a business/
industrial park.
These three points are elaborated upon in the attached report to the Planning
Commission. Please refer to that report for additional information.
BUSINESS PARK TASK FORCE
The Business Park Task Force has been given the challenge to explore
industrial development opportunities within the community. This endeavor
has included analyzing existing industrial properties that are available for
development as well as identifying possible areas for creating a business
park. Based on the present land use and zoning, the Task Force has
gravitated towards establishing a business park on that property lying on
either side of the County Government Center, including the parcels requested
for a land use change. Obviously, if the land use plan is amended, the Task
Force will need to reevaluate the viability of a business park along the west
Highway 10 corridor.
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Pat Dwyer, Chairman of the Business Park Task Force, will be at Thursday
night's meeting to speak on behalf of the Task Force and the implications the
requested land use plan would have on a business park concept.
Land Use Amendments
January 17, 1994
Page 4
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CONCLUSION
Staffs review of the requested land use plan changes has been based on the
request to change the land use to commercial and has no direct ties to a
specific tenant, such as Menards. Regardless of who the tenants may be, the
real question is whether the City wants to introduce large scale highway
commercial at a large scale to the west Highway 10 corridor, or continue on
course to implement the concept of a business/industrial park.
As mentioned before, development of a business park is a long term
commitment. Initially, the activity is not as brisk nor flashy as commercial
but over time provides the proper ingredient for a healthy business
environment. Therefore, staff believes the concept of a business park as
presented by BRW and adopted by the City Council in 1990, is still a valid
and appropriate land use for the west Highway 10 corridor. With the
extension of City water and sewer to the eastern limits of this growth area,
the City now has the opportunity to allow the business park concept to move
forward.
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Therefore, staff is recommending the land use plan amendments by Marv
Prochaska (Case No. LUA 93-1) and County Ridge Partnerships (Case No.
LUA 93-2) be denied based on the following:
1. Growth Management Plan's goals and policies states that commercial
development should be located to strengthen the downtown area and
strip or scattered commercial along major roadways should be avoided.
2. The Focus Area Study has set the foundation for a business park
concept along with supporting commercial (not Highway Business)
activity. This study involved a consensus of several people and
established a vision for the community to develop a strong industrial
tax base and employment base.
3. Commercial development opportunities currently exist along Highway
169 corridor, which should remain as the focus for commercial
development continuing to serve the community and regional needs.
This will strengthen the City's position as destination shopping for
residents throughout the trade area.
4. Supplementing industrial zoned property with commercial without
replacing industrial elsewhere in the community contributes further to
the depleting industrial inventory for development purposes.
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5.
HB (Highway Business) land use designation will allow commercial
Land Use Amendments
January 17, 1994
Page 5
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activities immediately adjacent to both future and existing residential
area. Without a natural buffer or physical separation, compatibility of
Highway Business and low density residential is questionable.
PLANNING COMMISSION RECOMMENDATION
The Planning Commission unanimously recommended denying both Case No.
LUA 93-1 and Case No. LUA 93-2, based on the five findings presented by
staff and included the following findings:
1. The applications are not consistent with the current Comprehensive
Plan.
2. Testimony presented by Pat Dwyer, Vice Chairman of the Economic
Development Authority and Chairman of the Business Park Task
Force.
3. The City is about to update the Comprehensive Plan Use Plan, at
which time the appropriate land use mix will be considered.
.
At the Planning Commission meeting testimony was taken from residents in
the Sandpiper Estates development who all opposed commercial development
at the proposed location. General concerns included compatibility of
commercial development with residential, noise, traffic, consistency and
commitment to the Comprehensive Land Use Plan, and impact on property
values. Representatives from Tony Emmerich Homes and Menards were also
present to present their request and answer questions.
.
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ITEM 6 & 7
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TO:
PLANNING COMMISSION
FROM: STEVEN B. ACH, CITY PLANNER~
DATE: JANUARY 25, 1994
SUBJECT: A) COMPREHENSIVE LAND USE AMENDMENT
REQUEST BY MARV PROCHASKAI PUBLIC
HEARING, CASE NO. LUA 93-1i
B) COMPREHENSIVE LAND USE
AMENDMENT REQUEST BY COUNTRY RIDGE
PARTNERSHIPI PUBLIC HEARING, CASE
NO. LUA 93-2
REQUESTED ACTION
Planning Cases LUA 93-1 and LUA
into one staff report because
proximity to one another, and both
issues. The applicants are
Comprehensive Land Use Plan from L1
(Highway Business).
93-2 have been incorporated
of their identical request,
sharing the same planning
requesting to amend the
(Light Industrial) to HB
.
LOCATION
The two applications include a 20 acre parcel and a 24 acre
parcel, respectively, lying west of Joplin Street alignment and
east of Sherburne County Government Center.
ATTACHMENTS
Zoning Map, Land Use Plan Map, Land Use and Circulation Plan
from Focus Area Study, Developable Commercial property along
Highway 169, Developable Industrial Property.
OVERVIEW
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In 1990, BRW Inc. completed a Focus Area Study which analyzed
land use and transportation alternatives for an area generally
lying west of City Hall between Highway 10 and County Road 30.
One of the primary land uses proposed for this area was
business park (BP). In addition, some commercial land use was
also identified to compliment the business park development.
At the time this Focus Area Study was completed, the City did
not have a business park zoning ordinance adopted. Therefore,
one of the recommendations from the Focus Area Study was for
the City to create a business park zoning ordinance setting
forth the standards and uses that would be found in the
business park district. This ordinance has recently been
completed and approved by the City Council.
P.O. Box 490 · 13065 Orono Parkway · Elk River, MN 55330 · (612) 44]-7420 · Fax: (612) 44]-7425
"er, prior to adopting the Business Park Zoning Ordinance, ~
t:. .ity expanded the Planned Unit Development (PUD) zoning
de: ~~ation and underlying land use of light industrial to
cov~: the identified business park and commercial area. The
combination of this zoning and land use preserved the integrity
of a future business park until the Business Park Zoning
Ordinance had been adopted.
A CHANGE TO COMMERCIAL
Representatives from Menards have been looking for a site in
the Elk River area for the past few years. Recently, they have
focused in on an area lying west of the Fairgrounds to the
County Government Center. Menards would like to build a new
store as part of a major shopping center (approximately 350,000
square feet) which would consume both the 20 acre and 25 acre
parcel. To accommodate this development request, the Land Use
Plan will have to be amended to reflect an underlying land use
of HB (Highway Business). The HB land use designation will
allow retail commercial similar to that found along Highway 169.
ANALYSIS
Prior to considering this land
properties, it is important to
following issues:
use plan
recognize
change for these
and evaluate the
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Inventory of available industrial and commercial
property for development. There are approximately
140 acres of commercial property along Highway 169
that either has water and sewer available or is close
proximity to the utilities. On the other hand,
industrial property is limited to 8 platted
industrial lots (13 acres) and one unplatted tract of
approximately 45 acres. The diminishing availability
of industrial property has raised concern and is one
of the challenges the Business Park Task Force has
taken on to expand that industrial inventory.
Concentrating commercial activity along Highway 169.
By encouraging commercial development along the
Highway 169 corridor, a critical mass of commercial
activity would draw focus and identity to the
corridor. The identity would not be a pedestrian
oriented downtown, however, the massing of commercial
activity will reinforce the central retail district
of the City. Focusing on Highway 169 corridor and
the Main Street corridor to the original downtown
area will unify and bring together the three types of
commercial found in the City, highway commercial
along Highway 169, offices along Main Street, and ~
service oriented businesses within the downtown ,.,.
commercial area.
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Endorsing and adhering to developing a business/
industrial park. Through the City's comprehensive
planning efforts, various industrial areas have been
identified on the land use plan map. Once the City
has endorsed these industrial parks, a long term
commitment needs to be made to preserve the integrity
of the park. This commitment is important to protect
the park from commercial ventures responding to
cyclical market demands. When this occurs, the City
will need to weigh if the long term benefits of
commercial development equals the long term return
from industrial business. An industrial park will
take longer to build, however, provides an important
element to the City's land use composition.
BUSINESS PARK TASK FORCE
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The Business Park Task Force has been given the challenge to
explore industrial development opportunities for the
community. Based on information in the Focus Area Study, which
discusses the business park concept and the appropriate zoning
and land use; the Task Force has gravitated towards
establishing a business park upon the sites requested for a
change in land use. Obviously, if the land use plan is
amended, the Task Force will need to reevaluate the viability
of a business park along west Highway 10.
Pat Dwyer, Chairman of the Business Park Task Force, will be at
Tuesday's meeting to express the Task Force's position on the
requested land use plan amendment.
CONCLUSION
In reviewing this land use plan amendment, it is important to
note that the issue is not whether a specific tenant such as
Menards and/or other anchor tenants are appropriate at this
location. The question is whether the City wants to introduce
large scale highway commercial to west Highway 10 corridor or
implement the concept of a business/industrial park. Staff
believes that there is a need for a certain amount of
commercial. along the west Highway 10 corridor, however, this
limited commercial would be supported by' and compliment
businesses found within the business park as well as the
surrounding residential developments. A change in land use to
HB for 45 acres would set the stage for another development
similar to Elk Park Center. This type of regional commercial
will alter the character and change the course of present plans
for the west Highway 10 area.
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Therefore, staff is recommending the land use plan amendments
by Marv Prochaska and Country Ridge Partnership be denied based
on the following:
1.
The Growth Management Plans Goals and Policies states
that commercial development should be located to
strengthen the downtown area and strip or scattered
commercial along major roadways should be avoided.
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2. The Focus Area Study has set the foundation for a
business park concept along with supporting
commercial (not highway business) activity. This
study involved the concensus of several people and
established a vision for the community to develop a
strong industrial tax and employment base.
3. Commercial development opportunities currently exist
along Highway 169 corridor, which should remain as
the focus for commercial development continuing to
serve the community and regional needs. This will
strengthen the City's position as destination
shopping for residents throughout the trade area.
4.
Supplementing industrial zoned property with
commercial without replacing the industrial elsewhere
in the community only contributes further to
depleting the available industrial inventory for
development purposes. This in turn creates a greater
imbalance of land use distribution between commercial
and industrial within the community.
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5. The HB (Highway Business) land use designation will
allow commercial activities immediately adjacent to
both future and existing residential area. Without a
natural buffer or physical separation, the
compatibility of Highway Business and Low Density
Residential is questionable.
If the Planning Commission decides to amend the land use plan,
the following is recommended:
The commercial land use occur at the corner of the
Joplin Street extension and Highway 10.
The amount of property designated for commercial not
exceed ten (10) acres.
Whatever amount of property is changed to commercial
an equal amount of industrial be recaptured elsewhere
within the community.
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