7.3. SR 05-18-2009REQUEST FOR ACTION
ver
To Item Number
Ci Council 7.3.
Agenda Section Meeting Date Prepared by
Communi Develo ment Ma 18, 2009 erem Barnhart, Plannin Mana er
Item Description Reviewed by
Review and Consider Recommendations on the FAST Study
Reviewed by
Action Requested
Staff recommends approval the 1715` Focused Area Study as drafted. Additionally, staff requests
authorization of the following items:
1. Update City Comprehensive Plan.
2. Update the City Zoning and subdivision ordinances.
3. Update the City Transportation Plan.
4. Prepare a land use plan "addendum" for the properties immediately west of the study area,
west of Highway 10. Staff will request a price quote and return before additional work.
5. Prepare `interim' access plan, an attempt to consolidate at grade accesses along Highway 10
at 171St Avenue and the area near 165' Avenue, to determine obstacles and opportunities.
6. Extend the moratorium
Since the review of the Plan by the EDA and the Planning Commission, it seems apparent that
the City would benefit by extending the moratorium to allow, at minimum, the completion of the
Comprehensive Plan amendment and the zoning changes (items #1 and 2). Staff would suggest
the Council extend the moratorium for six months, or until these items were completed.
Items 1-3 would be conducted in house and would be started immediately upon Council approval. Items
4 and 5 would require outside consultants (HKGI for #4, Engineering for #5). Staff will receive a price
quote and forward that to the Council for approval prior to spending funds.
Background/Discussion
Since December 2008, staff and members of the Planning Commission, Economic Development
Authority, and City Council have been working with Hoisington Koegler Group, Inc. on the preparation
of a land use plan for approximately 700 acres of land centered around the commuter rail station. The
goals of the planning project were multi-layered:
1. Leverage commuter rail station and city owned lands as triggers for development.
2. Establish long-term vision for study area that will encourage practical and achievable
development while optimizing community value.
3. Identify ways to better link study area with broader community.
4. Suggest how study area can distinguish itself as a prime development district.
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During the course of the planning project, three monthly meetings were held with members of the
Planning Commission, Economic Development Authority, and City Council. Additionally a public open
house was held in April. Meetings with private property owners also shaped the results of the Plan.
The Focused Area Study (Plan) is broken into seven sections:
1. Introduction: Summary
2. Background
3. Objectives and Assumptions
4. Trends and Case Studies
5. Preliminary Concepts
6. Master Plan
7. Implementation
Sections 2 - 5 are a detailed description of the work completed thus far in the process. Section 6 is
the product of this work. Section 7 will outline the implementation issues.
Master Plan, Section 6 breaks up the study area into smaller nodes, each with its distinctive end goal
or plan. In each section, key strategies are identified. These, if preserved and followed, will aid in the
implementation of the Plan, as components will likely come together piece by piece. The Master
Plan can be found on page 39. Separate regulations will be prepared for each node to reflect the
desired land uses.
Implementation, New Section 7 discusses implementation steps. This section is particularly
important as full implementation of the Plan is expected to take several decades, as most of the
pieces will come together gradually and separately. The Council and property owners should be
aware that the success of the Plan is reliant not only on the completion of large public infrastructure
projects (interchanges, overpasses, extensions of Twin Lakes Parkway) as well as smaller land use
decisions and improvements (building remodel/orientation, landscaping, land uses, etc.). These
smaller decisions will have a large impact on the tone of development until these improvements are
made.
SLUnlnary of Issues
Evolution. The Plan recognizes that the land uses will evolve over time. The commuter rail station
will add visibility and a marketing tool to land owners in the immediate area; effects of these impacts
already can be seen with the Elk River Station mixed use development. Other developments are
expected to advance as the train station and Northstar route mature. The area will evolve as land
uses change. Uses that are less dependent on a train station may choose to move, selling their land
to users that are willing to pay for the train station amenity. Additionally, other agencies may
compel changes; MnDOT's Interregional Corridor Plan (IRC) contemplates transitioning Highway
10 from a rural highway to a freeway, with access restricted to one interchange in the immediate
area. Businesses that rely on direct, quick access off of Highway 10 will be impacted. While this is
not anticipated in the near term, the Plan recognizes the impacts this would have on the area, and
attempts to identify strategies that proactively maximize the benefits of a safer, freer highway
network. If adopted, all development applications will be evaluated based on whether they met the
long and short term objectives of the Plan.
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Pinnacle. During the meeting on Apri127, 2009, there was concern on the developability of the
Pinnacle due to access issues, the market for office buildings in Elk River, and the proximity to the
train tracks. Comments received from area property owners since the meeting echo this sentiment.
The Plan understands these challenges and recognizes that this area represents a further departure
from the current market. It is important to note that the challenges of this area are independent of
the Plan. When Highway 10 is improved, either with an additional light at 165t'' Avenue or with the
conversion of the route to a freeway, access to the Pinnacle area will be limited. The Plan establishes
strategies for maximizing the property values for the property owners with the identification of
access routes and cooperative land uses.
Interchange. One of the issues resolved during the course of the planning project was the subject of a
potential interchange. Several options were considered, ultimately, these were rejected due to
MnDOT issues, or in order to maximize the benefit to the study area and the city at large.
Ultimately, a location generally north of 165th Avenue was chosen because it meets MnDOT
separation criteria and it provides the best option into the study area. An interchange will be
expensive, and the benefits may not be immediate; it does seem appropriate to further study the
costs of improving access in this area of the community.
Next Steps
Adoption of the Plan is not the end of the process. Full implementation of the Plan includes several
additional steps. The steps identified thus far include:
1. Update City Comprehensive Plan to reflect the changes in land use.
2. Update the City Zoning and subdivision ordinances to make changes that allow
implementation of the Plan. These changes will include land uses, design guidelines, and
landscaping requirements.
3. Update the City Transportation Plan to reflect the importance of Twin Lakes Parkway and
the desired location for the main intersection/interchange onto Highway 10.
4. Prepare a land use plan "addendum" for the portion of the city west of Highway 10. This
would consider land use options for the area around Yale Street on the west side of Highway
10, considering the long term challenges to this area are similar to "the Pinnacle."
5. Prepare `interim' access plan, an attempt to consolidate at grade accesses along Highway 10
at 1715f Avenue and the area near 165`h Avenue to determine obstacles and opportunities.
6. Staff will forward any additional steps toward full implementation as they are identified.
EDA/ Planning Commission Comments
The EDA and Planning Commission both reviewed the Plan. At these meetings John Weicht, property
owner/developer in the study area, voiced his concerns, specifically those concerns that a potential RV
storage facility proposed for the study area might not be appropriate in the study area.
This issue is a central one the Council will face in the coming years. Recognizing that the reinvention of
the study area, based on the Plan, will take many, many years, the Council should carefully consider all
developments proposed and how each fits into the city's long term vision for this area as identified in the
Plan. Each relatively minor land use decision will speak to the area's tone and temperament. For
example: How many auto repair places create an auto repair district? The further the market is allowed to
deviate freely from the Plan, the greater the assistance from the city (financial and land assembly) it will
take to transform the area into the long term vision. This does not mean that all uses have to stop; this
merely means that each development is reviewed based on "what's next." Can the large warehouse
S:\PLANNING MAIN\Projects\FAST Study Area\FAST memo to Council for approval 5-18-09.doc
building be built to preserve necessary right of way or environmental concerns? Can the building be
designed to accommodate reuse that will be complimentary of the final Plan? Regardless of the timing of
the redevelopment, every opportunity should be taken to reinvent the area away from where it is currently
heading, which appears to be away from the goals of the community. For example, land uses not
complimentary to the commuter rail train station or businesses that may not provide jobs necessary to
help form the critical mass for additional services like restaurants.
At the Planning Commission meeting, Steve Rohlf voiced his concern with the Plan. He felt that the
interchange should be located farther north. He had concerns with all the property owners on the west
side of Highway 101osing access. The Plan considered several options for the location of the future
interchange. Acknowledging the benefit an interchange would bring due to traffic and safety, this was
considered carefully. The Plan recognizes that the interchange will be a costly improvement, to be shared
by the City and MnDOT, neither of whom have financial resources to complete this project in the short
term. Unnecessarily adding acquisition costs only serves to delay this improvement. The Plan reflects the
most northerly access point MnDOT will acccept for the interchange. In response to Mr. Rohlf's
concerns, staff pointed out that the area will evolve over time, regardless of the Plan being in place. The
Plan proactively accounts for these changes. Staff also reiterated the importance of the west side plan to
better understand the fixture potential land uses given the expected changes.
Financial Impact
None
Attachments
1. The Plan distributed for the Apri127 joint meeting will be used for this review. Based on the
comments from the Apri127 meeting, the following pages saw changes, and are included.
The full Plan is available on the city's website at www.ci.elk-river.mn.us. Please retain your
copies. Due in part to the cost of the copies, at the conclusion of the project, the individual
pages with changes will be replaced.
2. The pages changed and attached are: 8,9,15,16,43,44,45,49,54,55,56,57,60,61,70, 80.
Action Motion by Second by Vote
Follow Up
S:\PLANNING MAIN\Projects\FAST Study Area\FAST memo to Council for approval s-18-09.doc
BACKGROUND
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N~r~~star cor~~mut~r rcri~ firr~irr
EXISTING 7RAhSPORTATI01~
Hihvway ~a J~~g is the prir~ary arterial running along tl7e v~estern boundary of t1~e study
area, Today the roadv~ray is ~ f~ur~lane, at grade regional highway ar~d has average daily
traffic cants ~AaTs~ of r~ear~y ~~,eoo trips per day Currently, the primary access pai~~t
to the project area is the signalised intersection at fi~~st avenue. Additional access
pnir~ts exist at tuna un~signali~ed intersections at ~~3rd Avenge and ~~~th Avenue and
a handful of parcels have rig}~t•in, right~out access or additianai median crossings f or
access.
`f"~r~rin i.akes Parl~uvay serves as the prirr~ar~r collector for the 1=AST, as traffic from
southeast >=1[c River is funneled south to Higf~vlray ~a~~~g to the signal at ~~~st Avenue.
The raad~ray has been improved as a f aur~[ane vuith a median frarn fain Street to the
transit station, and as a four lane read v~rith no ~~nedian fram the station to Highu~ray
~o~~g, Tl~e raaduvay is anticipated to carry nearly ~axo~a cars per dad i~ tf~e future
and extend to the southeast through the study area to Jarvis street ire the southeast
Garner of E!k fiver. Tv-~in fakes Parl~wa~f represents the only rail Grassing in tf~e project
area, A previous rail Grassing teas located at ~7rd Avenue, but was relacatd to the
current location far the Northstar station development, Currently an[~ a small portion
of ~~~rd street remains from Highv~ay ~~~~~9 to the rail line and then car~nects south
v~rith ~Jlysses street to farm the built internal rand netuvork uvest of the tracks, ~~~th
Avenue in tie northeast serves as a cal~eGtar far the residential uses beyond the
project area: bringing people to T~+in fakes Park~+ay. The ar~ly private streets e~cist
~~rithir~ ilk River statlar~.
~~~~~~~
Tl~e larthstar commuter rail gill begin operation ~in fali of ~oag~ Currei~tly+ the
Northstar cornrnuter bus service operates out of the park ar~d ride facilities v~+l~ich are
current[}~ ~inaii~ir~g construction. The rail service is anticipating five dail~+ can7rnuti~~g
trains to downto~rn i~inneapa[is with one reverse commute train per day The
average trip time f rorn Elk River to downtown Nli~~neapolis is anticipated to be ~~~~8
minutes,
l~i`~
The tv~a heavy rail lines are owned and operated by Burlington ~artheri~ ~ sang-fie
and operates as a mayor corridor far crass Gauntry raii transport. On averages nearby
~o to 8o trains per day mane through the project area Frith speeds in excess of ~ornpi~.
Noise and safet}~ car~cerns ~rvill be significant considerations far land uses adjacent fa
the rail line,
~~~~a~d~s ~ ~"~a~~
A limited number of sidevuallts and trails exist v~rithin the project area, Thane trails
that have been built ca~r~e ~~ith recent develnprnents such as Ells River Station and the
raadv~ay i~~provemes~ts along Twin !.ekes Parkv~ray and ~~~th Avel~ue~
~`~ v~~ ~ocus~~~ ~r~~ s'ru~y
View ~f ~fighway ~o~~bg t~~raug#~ the st~~y c~r~a
~x~stir~g rail ~irr~ ~r~ssin ~t study area
&AGKGROUND
RELATED PLANNING EFFpRTS
The master plan for the ~7~st Avenue ~A~T exists in the context of major transportation
planning efforts for the prirr~ary transportatio~~ corridors tl~ro~gl~ iRlk River, These
transportation planning studies and their a€~tcomes are critical in de~nir~g the future
[and use direction for the ~~~st Avenue FAST, i~ey decisions an la1~d use will lil~ely ~e
determined bythe locationofafutureinterchange fnr i~ighway~~f ~~, asavertime the
corridortrar~sitians to a limited access freeway ar~d all existing accesses are eliminated,
The following is a review of the transportation end land use planning efl'arts related
to the ~~~st Avenue FAST
~~o~ l~~~er-~eg~at~d~ Cn~r~d~r ~~a~~ge~n~ ~~~~
in ~~~~ [~ ~~T, working vxiith input from the city of ~lC~ River, completed aninter-
Regional Corridor anageme~~t Plan identifyi~~g alternative strategies for upgrading
Highway ~o~~g south of Highway ~~~ i~~ ~ll~ River to a limited access f reewaya The study
identified two options far a future six lane freeway alignment; rAlignmer~t A' essentially
r~~nning parallel to the rail line roughly ~o~' away and `Alignment B' the existing
Highway ~aJ~~g corridor. The study also identified two interchange locations within
~ll~ River between Highway ~o~ and the eastern boundary of the community for either
align~r~ent, one would be located near~arvis street and the other near ~~~th Avenue
while the planning effort was completed in ~a~~, l~ [~ ~~T still has not identified any
funding for this project in their ~~ gear capital ir~prnvernents prngram~
~rg~w~y ~~~~6~ Pre~x~~n~ry ~~~~~~ ~n~ ~~tri!r~~monta~ l~~~un~e~t~ti'~~ tud~
~~rrently underway are two ~N Q~T studies funded by the City investigating wa}-s to
solve traffic bottlenecks in ~ll~ River clang Highway ~o leading west through historic
riowntawn, High~ray ~~g heading Werth throagh a ~~~ajnr camrr~ercial area of the
cor~r~unity, and tl7e ~o~ & ~a~~~~ interchange, Tl~e two studies identify a preferred
reconstruction plan for the major interchange at ~o~ and 1~~1~~}~ the iUiain street and
~chaoi street intersections clang i-iighway ~6~ and the intersections along Highway
1a rnaving tl~rogh the dawr~town area west to ~al~e Orono, A mare detailed revie
of these regional transpartatiar~ planning efforts are discussed in the assumptions
chapter of this report*
~~~ 1~~~~r ~o~r~~ie~~~~e Pl<~n
In ~~a3 the city of ilk River co~~pleted a Ca~T~prehensive Plan update fnr the communlty~
At the tune of the update much of the land within the FAST project was unde~reloped~
in general, the City designated highway commercial uses along the Higl~wa}~ ~oJ~~
corridor with ligl~t i~~dustrial uses beyond, earth of the rail line high density housing
was selected as the future [and use, Two additional transportation i~~itiatives were
ider~tif ed as part of the ~o~~nprehensive Plan update, The first initiative was to create
a connection between ~7~st Avenue and ~~~th Avenue through the extensia~~ of Twin
~alces Parkway, and tl~e second was to investigate a roadway connection between _
Hi h~va ~o ~5 on tl~e fareastern bo~indar of the cornmunit , .:T:~~~z
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OBJECTfUES AND ASSUMPTIQNS
GEN£RAl ASSUtNPTtpNS
~n order to plan f or appropriate land use and transportation investments far the ~7~st
Avenue i=ATr certain assumptions were made in order to focus the planning efl+ort
and set ~ distinct framewar~ and visiar~ far the future. general assurr~ptiar~s far the
planning efl+art f ollow:
t~a~or ~r~~sp~r~~~~~~ ~~r~veer~~s v~~~1 ~~ a ~~trnar~ devel~pen~ ~r~e~~
The often familiar treed in comr~ercial real estate will lil~ely play out in the ~A~T,
r~ew develaprent and redevelaprnent typically follow transportation and public
infrastructure iruprovements, The first primary trigger for development will be
the Narthst~r commuter rail station opening in fall of ~~~, The allure of the first
co~muter rail line ire ~iinnes~ta will likely solicit interest fror~ the deve opr~ent
communltyt Additional roadway improvements through the Gateway will likely also
trigger development in the area in the near terra. I~~ the future, the reconstruction of
the ~a~j~a~~~g interchange and the car~versian of Highway ~a~~~~ to a limited access
freeway will trigger significant land use and transportation pattern changes in the in
the ~~~st Avenue FAST.
~"~~~ 1.~~es ~~r~~~ w~~~ ~~ exte~~ed ~~ ~e~~~~ a su~~re~~o~~~ cn~~e~~ar ~~r
~~~roved gc~es for easy ~!~ ~~ver~
The ~~I~ River Transportation Plan identifies Turin t.al~es Parkway as urhani~ing collector
from CAM ~z to the signal at ~~~st Avenue, The transportati~i~ plan also indicates
the continuation of Tv~rin ~alCes Parkway t~ ~~~th Avenue serving as the subYregional
collectarfarsoutheast ~1~ Rivera
I:a~~ uses vvr~~ ~eco,e ~~re ~~tenslve over t~rne~
As i~~frastructure impravemer~ts are made ar~d ridership ir~cr-eases with tf~e ~orthstar
cornmu~er rail it is lil~ely mare `rr~tensive development will occur throughout tf~e l=A~
project area,
~u~~re ~~g#~~~ ~~f ~~~ access ~o stu~~ area w~~~ ~e ~ar~~er s~~~l~ t~~~ ~~~st
~ve~ue ~n~erse~~fo~ due ~~ l~ ,~~T s~a~~~ re~~rrerne~~s,
~`he current intersection of ~~~st Avenue and ~lihway ~o~~~g is less fhai~ ~ 1~ile from
the motor interchange at ~lighv+ray ~o~ and Highway ~a~~6g, a typical rule of thur~b f or
i~~terchange spacing, ~iN DOT rna~~dates the future i~~terchar~ge must ~y at least ~
mile south ~f the Highway ~o~ & ~a~~~~ interchange for safety purposes, allowing fir
prapereonstrcfion of on ramps and a~ amps, A location not supported by ~~ DOT
will likely not he implemented,
s~ud~ area ~s in d~ue~~pr~er~~ ~~pe~i~~~~ wi!~~ o~~er d~s~ri~~~s in ~ ~~~s~~e ~~~
lever.
Vvifhin ~llc River a large carnrnercial center exists just north of the project site slang
~w,
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Highway ~bg near Main Street and ~chaol street, a~~d captures much of the commercial ~~`µ~~`~= -~`~` A`:
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OBJECTIVES ANQ ASSUMPTIONS
business for the communit}~. In the future a broad ~an~mercial redevelopment area
ispl~nned~orpartior~s of theravel miningareafurthernarthalong Highway~~g.
I~egionally$ an near curnmercial canter anchored by duper-Target relocated rim
~Ik Riven wasrecentl}~ developed aerassthe Mississippi Riverin ~tsega, At the
intersection o~ I~iighway ~~~ and interstate ~~. in Rogers ~ broad area of commercial
and retail uses exists,
~x~s~in' ~ran~~ni~~r~~ ~~~~ and has ~i~ are ~i`~e~y ~~~d,
Duetathe e~ten~ivecosts of relocatingma~ar utilities and the lengths these utilities
extend through the site the master plan assumes it is unfeasible to relocate these
utilities through the project area,
Any near ri!~er ~r~s~ir~ ~~rx~~e} ~n ~ay~on ar ~a~~~e~ ~r~u~~ not ~ub~~~~~if~ei!y
~~~~~ deve~~p~e~~ ~~r~~e~~es ~~r ~f~e Judy ~~e~,
The location of the proposed future river crassi~~g is situated tag far south ala~~g
~igl~way ~oJ~6~ to have any ma~ar develaprnent ir~7pact on the site.
I~~~1L TI~POTTi~f~ ~i~lTIQNS
The ~7~st Avenge FAST is situated at the nexus of major regional roadway carridars
in the nort,h~Nest metro which have a significant impact on the future of the study
area and the community of Elk River. Tk~e fallowing are the regional transportation
assumptions for the master plan:
i~wa~y ~proverner~~~ ~~~nned by ~~e ~~~~~ wx~~ ~~ ~~~ ~e~er~ninan~ i~ ~~r~ing
c~r~d ~,~~ ~~ rede~~~p~~~ to ~~~ ~~~s~ F~~u~e~ Ares udy,
Understanding the tiring and scope a~ future charges far the carridars will aliovu for
the appropriate plarnir~g and level of irvestrr~ent relative to the future improvements
i~ the carriciar.
Tr~nsparta~i~n w~~f ~~~~ al~ve~~~n~en~ s~r~~e~ie~ end v~~e very,
location of ~ future interchange location ~vill lave the significant ir~pacts land use
surrounding the interchange
~~~ l~~ver pan ~~f~u~~ce ~r~nsp~r~~~i!on ln~e~~en~~ w~~~ ~#ar~~ ~~~
de~~~~p~n~~
Through the preparation of this master plan and subsequent studies, the City i~as
the ~bilit~to in~i~ence ~ ~~Tforthe locations ar~d timing of transportation
improvements which gill have the broadest be~~efit far the i-ATa
~ D~~' his three key ~ransp~r~~~f~~
~~c~~e~~
~~ ~~ter-r~gtanai ~arr~dar Manag~men~ P~a~
~~oQ~~; T~#s p#~n i~enti~es af~~rnatives ~ar
u~r~dir~gNf~#~way ~~J~~g to ~ lin~~tad access
f reev~ay sa~t#~ a~ t#~~ ~#igi~~+~y ~a~ ~ ~~~~Gg
in~erchar~g~ through ~!~ ~i~~r, Ramsey and
Anoka, ~a~s~r~ct+~~ and f ~r~ding are r~a~
c~rrren~#y in ~i~ ~a~'s ~a-year ~rograr~n,
~ig~w~y ~~~ ~r~~~m~r~ary Design and
i~nviranmen~a~ ~ac~me~tatiorr Judy
(~nderway~~ Tl~is study idef~ti fees pre f ~rre~
Ian f~r~~~Jr~g interchange as sue## as the
preferred r~c~~~struct~an ~~ar~s for ~~~ ~~~n
Street and 5choai street #t~terc#~a~~ges t~ort#~,
Cons~ructior~ and f ending ire not c~~rrently i~
~N D0~''sa-year program,
Nig#~way ~a ~re~~~nir~ary Des~n and
~~virv~~~r~ta# Qvc~rr~er~tatia~ 5i:udy
~u~derway~: ~I~rs st~~dy ~v### #~e~tt fy a
pre f err~~ pl~~ f or H#~hv~~~y ~a upgrades f ram
dust vest o f ~~J~~~~~~g ir~terci~ange,through
Do~~~nta~~+n ~Ik ~i~e~- pest to fake Orot~a.
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'` i f `~~a. ~ Yr~ ~'~GLIS~~ ~f ~'Q ~~11C~y
THE MASTER PLAN
~ ~°` ~ ~ ~ ~ ~ ~ ~ Parl~way~ The development is organized to promote internal ~irculat~on far streets
~ ~ ~ ~ and drives and easy pedestrian navigation, Connections betv~eer~ sidewalks, traiis and
~~~ ~rstrfct ~ppr~aa~f~ far the r~aste~~ p~c~r~ f aoks pnbi~c gatl~er~ng places are ~r1t~~ to n1~IrltaEnin the success of commercial uses and
at k~y~ aspects ~~ ~~veloprn~r~t ch~r~~ter ~r~~ attracting residents to f he district.
pre~crfbes the ~~y arbor, design pr~~ciples ~a
f off aw f car e~~h ~istrict~ These ~~y ~rrn~rpf es
include ider~~i f icatra~ a~ bu~fdir~g, p~rfrfn~,
ioad~~g ~~d $~rtifice panes ~r~d file relat~c~r~sl~i~
between the r~h~r~ced street net~vor~ end
ciccess to devef ailment pc~rceis~ zones for
stormwater treatment, crftic~~ b~ f ~~r ur~~~ ~r~~
areas f ar preser~a~ion o~ r~~tur~l ~e'~~a~iar~
~~d ~vetlai~ds ire afsa ifli~str~ted, each afis~i-fct
is an~l~~ed ara~.tnd t#~es fcey ~~-b~r~ design
prir~cipJes, and ~rgh[ig~ted in tie te~c~ ire the
indfvfd~aal des}gn criteria f ar devefapr~er~~ in
~acl~ district, This ~ffg~et~e study appraac~
orgar~f~es anc~ afigns elf o f the i~~rique d~st~•fcts
ire the project, rna~c~ir~g the overall ~rarnewQrk
f ar t~r~ ~~~s~ A~~r~~e BAST rn~st~r pf~r~,
ix~~ ~~e and Ca~n~r~~~~ Di~t~1t
TT~~ ~~
---.~_..: v ;Tire area imr~ediately
. _ .. adjacent to the Nortf~st~r
x_.¢.
~~. -_w~r~ : station is ei-~visioried as
'. ;~;~°.~~ vibrant nixed-use district
+~ ;. ,', As fntensificatioi-~ ~~
4 ~
- ~ ..~.. ~ development occurs over
tin~e~ this district viii include vertical
mixed~use at the primary ir~tersectiQn to
the transit statior~~ residential uses are
er~visianed north o~tlhe station on bath
sides of Twin fakes ~ar~way and ad~acei~t
to the park and ride lot, bong term,
housing could develop in cor~ju~nction
with a parking structure as develapmerit
intensifies and ridersl~ip increases.
Office is the along Twin fakes Parkway
south of the transit station, with larger
mid-rise buildings framing the street and
srnailer i~uildings further from Twirl Takes
- - ,
'y}~~ . ,•
.. 'ti ..t ~ `~~J lV'
~:.~
The character a~ Twin likes Parkway is distinctly ur1~a~ tl~rauhaut the entire district
combining an attractive, corn~artable streetscape, while sti~~ functioning as a collector
raaciway, The round~a-bout a~ the re~aligr~ed intersection of ~~~st and Twin lakes
Parkway facilitates the turning mover~ents of the projected traffic volumes Alan
the street starefrar~ts and business occupy the ground level, while arrier~~ties such as
broad sidewalks aid a~itdoor pia~as with benches a>~d iaridscapir~ and properly scaled
lighting create a saf e and comfortable environment far pedestrians, Trails along the
wetland edges tie together vuith side~ralks and outdoor plazas. fin-street parking
exists far small segments of Twin fakes Parkway in front o~ retail uses, ~~n general,
parking and loadir~gareas should lie located internal to thelargerdevelopmer~t
blacks utilising shared ar district pai~kir~g to rnaximi~e development alarig the street
frontage and further distance buildings from the rail line noise ~n addition, extensive
landscape buffers should he planted and rnairitained on bath sides ~~ the rail line for
noise att~il~atl~rl~ ~ s~r~te~~ a~~r4~c~ far storn~water allows for building oriei~tatlDn
tov~rard bath r~aturalamer~itiesand internal storrriwater treatments stems, bringing
increased value to development
THE MASTER PLAN
., _ _.... _ ... ~ w This district afters the mast
.,,4 ~~{patential for retail
~~ A .... ~ develapir~ent ire the near
Y;. ~:
~: term due to the signaii~ed
'~~~ ~ ' ~: intersection at ~~~st Aver~~e,
. -..~~ :The challenge for this ~istrkct
wick be aintainingsuccessful r~ear~term
develop~~~ent oncethe intercl~ane is
constructed and access from l~igC~way
~ o J~~g is shifted away from the current
intersection
The intersection at I~ighway ~aJ~~g and
~7~st Avenue wilk likely remain the pri~~ary
accessfarthe FASTfo~`san~e ti~~e info the
future As reside~~tia~ uses develop Harsh
and the com~r~uter rail begins operation, it
is likely deg+elopers wikl become Cnterested
i~~ s~allert canver~ience retail and
~ammerclal uses at this #ocatia~.
witl~the inevitable closure ofthe ~~~sfi
intersection, the fey far continued success
of carnrner~iai or retail uses in this area
~riil center ot~ building prientation and
~ar~necti~it~~ ~uildir~gs ~r~ust be designed
to hairs a °`frant" tor~ard t)~st avenue and
tar~ard Turin ~.aiCes l~ark~ray anticipating
the transportation shift.
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wetlands provide significant development constraints far individ€~al landowners, but
district wide they provide the opportunity to better argani~e the development pattern
through a strategic ~retCand mitigation approach to ~ptirnlxe de~r~loprnr~t potential
Add~tlanalky, ~~ Il~ter~l~l street car~n~cti~~ far ~~~~ pr~~rate ~~~ ~Ity ~~V~e ~~~~~ .~~lntlyr 1NItl1 the wetland rn~t~gatl0na d~str~ct
should be sa~tC~ of ~~~st~ver,ue through wide starmater treatment approach wikl help minimise stormwater infrastructure.
the Gate-~a.y land to ~vvin ~aC€es Park~ra~r. Last, a trait netwarl~ along the pe~iiphery showcases the natural systems and provided
This roadway wi11 help ensure Friability aclditiar~ak connectivity,
fang-term ar~d ade~~rate vehics~lar
circ~latior~ year term as a solitary access
point out to ~~~st ~lll not alkow fir
left hand turns due to stacking issues
at peaks times. Thus, the integration of
the northern portion of the Gateway
property f yr design consideratlor~s a~ this
~,,~
.. ~~..:od~strict is critical to e~~su~•i~~g successful
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evelap~~nent,
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F~~~~re Binge ~ist~i~t U~ne~te St~~~y
THE Mt~STER PLAN
r f.. _ -... -- _.u ~ This district responds to the
i preferred location of the
- ~ future interchange along
t .,.
- i
Highv~ay ~ a~~~g and suggests
h 1
-~~~~~ - a large area of higl~~ray
~~~:
~~~ ~-...Y . ~ commercial iand use ~T8
acres an the northern side of the
interchange and transiti~ning to office
and industrial uses rno~ring eastf 1"he city
~~ust balance tl~e levei of near~term
infrastructure ir~vestr~ents needed far
clevelapment Frith holding land for future
de~~elapn~ent Shen the intercha~~ge
ca~~es~
This district rill ultimately became the
gate~+ay tQ the commuter rail station and
fast ~~~ Ri~rer. The f olla~ing are rear
term and long term strategies for the fast
ilk River Gate~ra~~ District centered on the
f~rture interchangetiming.
~~~~~~~~
portions of this district could de~relop
earlier with light industrial uses along
the eastern boundar~r and r~ore office
J office industrial uses focused around
the prirnar~r intersection of Turin laal~es
~ar~~ray ar~d the future rand to the
interchange Because ofthe risibility
into the site from High~ray ~o~~~g a#~ce
uses could be viable in the near term and
could set thefoundation ~o~-tl~e eco-
energy parr concept.
The city v~ill need to determine the
appropriate level of infrastructure
investment for Twin Lal~es l~ark~ay giver
only roughiy ~~ acres of developlT,ent
on the easternpartion afthe district
Options could Include a tem~orar~r road
.~
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establish the district oharacter and pattern.
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Additionallya this district study illustrates an organised development approach far
parcel access, placement of buildings, paring, landing, end starrn~ater treatment, Ali
of ~hic~ are esta~liShed b~rthe fra~rewor~ of T~~rin ~a~es Rar~~ray dictating panel
access and Sizes, Ti'1~ raadv~ay structure and prescribed access IacatEOrs ~vi11 assist
it land assembly far a ur~i~ed developi~~ert pattern in the future to ensure adequate
p ~.~ Y~..
~ritl~ utilities or a core ietel~ canstru~ted deveiapmer~t access and internal circ~latian. .:.:.Yt~~ .,s,
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Street and round-about ~ntersect~on to ,~~~~
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Easti ~~1~ diver ~~tew~y n~st~'ic# - Neer Fe~m Vigr~~fte St~~y
THE MASTER PLFlN
~~~.~~
v~ith the recanstructior~ ofthe Highway
~a~ and~o~~~g intercl~angeand proposed
ac~es~ road Gonnectang to Carson street,
an op~artunity exists far ~orpvrate
campus site taking advantage of the
highway v~sihiiity and river ~r~ewsa This
additional aGCess in conjur~c~ion ~vith the
opportunity far an additional railroad
Grassing at ~~rd Avenue will provide
greater chances far this district to
redevelopment at a more intense le~el~
the longterm developn~er~t intensifies
around the earlier pattern of
inf rastrueture investments from streets
~ utilities to starrnwater, fiance Street
becomes the primary spine heading north
to the Carsar~ street Connection and the
existing frontage rand is re~nQVed1 but
still ca~7tains the utilities and serves as a
ire lane farthe de~rel~pment,
buildings are oriented toward the
i~ighway to Capt€~re the visibility and tihe
stormwater treatment area ire the renter
of the site is enhanced as an ar~enit~ for
the emplayees~ A buffer is maintained
along the rail line and smaller office
users f ill in near the tracks, Parking is
internalized and ~ntercanne~ted bet~een
the buildings and strangr mare direct
roadway and sidewalk ~onnectians back
to the commercial and retail areas at the
Hinge ar~d station Area I~illage ~istriGts
are~canstr~Gted,
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THE MASTER PLAN
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THE MASTER PLAN
The street system changes in the raster plan are suggested in order to improve tra~~,
~ireuiation and pedestrian connectivity to the rest o~ the ca~~tr~unlty, The ra~orit}~ o~
raaday alterations are integrated to extensia~~ of Tin Lades i'arl~v~ay sautl~ to ~~th
Av~nueandthe ~onversiar~ of High~~a~ ~~~~6g to ~~ree~ray~
~'wir~ L~ites P~rlC~ay
Tv~in Lades Parkv~+ay provides the ir~fra~tructore frarr~e~~or~ for argani~ing future
~ieveloprnent and re~~velopment in the stuffy area. The master plan en~risians the
ra~dv~a~+ as a four lane ~ollectar ~~vith a plar~tea~ median v~ith ~ ~~ mi e an hour design
speed, and 14er speeds through the station Area Tillage District Access ~~nanagement
along the raadv~ay de~r~es the development pattern and general parcel can~igurations
fiQr numerous uses, Full intersections ref~uire a r~inir~um of one-eighth mile hetvueer~
then, v~hiie right-in, right-out access occurs at roughly o~ feet if~tervals, The master
flan suggests the >~~~ of round-a-bouts at major intersections along Tv~in .~a~es
Park~ra~~ through the st~d}~ area; ~~~th Aven~fe, ~7~st Avenue and the road~ray leading
to the interchange. Round-a-bouts in these locations ~~ili aid ire trafi~c flaw and gill be
designed v~ith urge radius and rallWup aprons to accar~madate true tracF A tra~c
signal is suggested far the intersection at the transit station praviclir~g a saf e grossing
and to henef~t the retail uses in the r~i~ed use district The ~~~' right-o~#~~ra~ far Tv~rin
fakes Park~ray should ~antinue throughout the project great
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f~~und~a-~ot~ts facil~t~te ~ ca~~~~nuo~s trcr}~c ~iaw,
1v17i1e rolf~up ~prans i~ ffre cen#er ~flov~ f~rg~ tcuclcs to
rruv~g~te tie tur~~fng r~dtt~s,
THE MASTER PLAN
Streets trvithin residential districts arar~i~~ ~h~ d~v~iapr~ent pa~terr~ into ~ c~rvilin~ar
grid respandir~ to natural systems ~ taparaphy. These streets are traditianai in
~harac~erv~ith apposing driveCar~es, ar~~s~reet parallel parkin, turf haurevards~
side~rall~s, street trees and lighting, ~esider~tial streets have a ~a' right~af~~vay+
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Comn~er~iai' Streets
Camrn~r~ial streets in r~ixed~use and
retail areas havee~ctensivestreetsca ~
~ . e
eler~er,ts. rte f urn~shlr~ s such as
~enehes bike racks ar~d trash rece tacies
a
sh~uCd ~~ installed an side side~rval~s.
Pedestrian scaled s~ree~ lighting and
~arrrle~ard trees gill provide separation
~r`al~ fhb street. ~a~r~l`Ci~! streets f~ave
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R~3iD~IltiCtL ~GCGie?h
THE MASTER PLAN
TRANSIT SYSTEM
Nal-thst~r ~Or1'll~~~~~" ~~~~ St~tf~n
The Northstar corr~r~uter rail is seen as a plus far growth in tl~e district, but not ~
prir~~arydriver for change As the system matures and ridership grows it is important
the station meets the demands of tl~e patrons, Adequate parking will be a necessity.
1Nhi[ethe currentlotprovides~oo spaces, additianalspacemay beneeded inthe
futures ~ parking deck or ramp structure sauld he considered for tl~e station in
considerafior~ with mixed4use development before rare surface par[~ir~g spaces are
added since little [and exists far develo~n~er~t immediately adjace~~t to .the station.
Providing adequate facilities far bile cornn~~ting are also suggested, dike leckers
a[lo~r a safe, secure location for col~rr~taters to stare their hikes A well integrated trail
systerr~ will further promote bi[~e con~m~ting to the Nort>~star station.
~om~~n[t}f ~'ilRc~f~tor bus
kith the potential for more increased reverse commute trains, the city of ~[k diver
should examine the feasibility of a cor~rnun[ty circulator bus to ~rari~ in concert with
the Northstarschedule, Thecirc~alatorwould cor~r~ectcommunityernployr~ent
centers, davvntown and commercial centers to the Narthstar station eliminating the
need forthe automobi[efor some commuters.
l~~i~ ~,11?~
The raa~fer plan suggests providing an additional crossing of tl~e Bh~~F rail line near
~~rd Aven~et This additional crossing v~ill allow far ir~praved Traffic flog far the
comr~ercial and industrial uses i~7 the north of the study,. rather than funneling all trafl-ic
to Twin Lakes Parkway to cress the rail line. As the city lobbies to shift the rail line
north neardowr~town, the city should investi~atethe feasibility of either an at-grade
or grade separated crossing in this location V~hile creating an additional crossing is
ci~a[lengingt it is still worthwhile as something to strive for t~ create better and more
intensive deve[opr~ent.
The opportunity for a rail spur off of a major freight rail corridor couid ~e significant
far irtclustrial uses in the ~A~T~ The master plan suggests a parallel spur line to serve
the iridustria uses surrounding the ~D~ p[antF
aciciitianai rail crass€r~g sho~id be considered at
~~dRvenc~e
'l~`°1~, ~iv~n ~ocusecl area ~~'c~dy
A parlsir~g c#eclC ar ramp may be.ne~ded to the ~ture
to accn,~~r~odate increased ~em~n~ far tl~e North tar
Bilre locisers allow a secure focatiorr f ~~ car~~muters to
sto~•e t}~eir lailres
~ circulator bus world conr~ett a~he~• icey activity
~ente~s ire ~Ik River with the Narthst~r station
THE MASTER PLAN
A fully de~elaped plan far the ~~~St Avenge i='AT wilt impact the existing
public infrastructure systems i~~ tine area. 1ith the introduction of
development and redevelopment €n partior~s of the project area,
impraverne~~ts to the public syster~~ wif [ be necessary and advantageous
to foster rare intensive develaprnent+
i~a~dway ~na~ ~"raic ~n~fys~s
A~ the master plan for the ~~~t Avenue ~'AT indicates, the road
r~etwarlc is critical to the longterm success of aft uses wtthfn tl~e plan,
especially when access restrictions are irnp[emented along High~ray
~a~~G. ~itystafl"canducted a raad~vayand traf~icanafysis antf~e
ultimate deve[apn~ent scenario, and it is anticipated that upgrades
to the intersection at ~~~$~ Avenue a~~d i+lighv~ay ~~~~G~ wifl be needed
~~ development occurs i~~ tl~e FAST, Additionafl~r, internal roadway
ca~~nectians from devefopmer~t areas Sri[[ need to be desi~~ed to mesh
witf~ tf~e extensia~~ o~ Twin Lal~es Parkvtiray to the south througf~ tine
atevtiray ire order to facilitate traffic flaw through the area.
In~rastruct~re
initial analysts by [ty stall' of the sewer and water indicates that upgrades
to rr~ajor infrastructure systems will be needed at some paint during the
deve[opr~enttimeline. ~lostirr~pactswi[f comefrom rea[ignn~e~~tof
sanitar~r sewer and wafer fines with roadway irnpravements, The overall
capacity far sanitary sewer ar~d water ffovvs will need to fie further studied
as deve[apr~ent proposals comeforward, Additionally,f~~rtl~ere[ectrical
network planning will need to occur in the project area
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IMPLEMENTATION
~~~I~~~~~~~~~~ ~~~~~~~~~~~
imp[err~entation of the master plan far the ~~~st Avenue SAT vvi[l span many years and
include many campiex activities. It will [iiCely be more than twenty~~ve years before
the vision for the ~A~T is fully realized. There ire, howe~~er, many actions to be taken
in the near term -the nest one to ten years, These actions ~identi~ed in Figure 7~~~ are
critics[ to development success for the I=AT.
T'he initial focus of implementation ~vill be on actions needed to establish the master
plan as t[~e officio[ guide for development for the ~~~st Avenue FAST. The first
implementation step is City Council adoption of the master plan City Council approval
sets the stage for ail subsequent public actions and the car~~dence needed far private
redevelap~~nent activities,
During the early years of the FA~~ development, there are several critical actians that
can be taken to reduce development constraint, allow far greater investment i1~ public
amenities and enhance the creation of a s~€stainable neighborhood, f're~interchange
developr~~ent can be used to set the stage far the past-intercl~ai~ge development i~ith
enhanced financial opportunities, Suggested activities to enhance pra~ect success
inciude~
~ 5tra~egi~a~~y ~t~e deve~~prner~t so that i~ b~f1d~ market mome~~~~m ~~d ~ar~y projects ~c~ ~s
po5~ti~~e ~emo~strat~or~s o f gre~~ t~ir~gs to ~a~e i~~ ~{~~ ~AT~
~ B~1id ii~~l~-~~a~rty st~-ee~~capes, r~crt~ral areas end ped~stri~n iin~s because these ar~~en~ties ~i~r
drive f utu~•e rr~at`~et rr~terest,
~y Creme cor~ven~e~it, safe lin~r~ges ~etweer~ varia~s trc~ii routes far bike comr~~tir~g,
Key phase ~ activities identified in figure ~,~ are further described below.
Twin ~a~C~s ~~r~~~~ay 1~~~t ~ve~~~
Car~gr~ent with the East Pik River ~at~way District and Hinge District Development,
the construction of Twin ia.akes parkway will begin to establish future transportation
patterns far the FAST. The re~alignmer~t of the intersection at ~~~st Avenue and the
extended Twi~~ ~.akes i~arkway and canstructiar~ of the roundAa£~aut will highlight the
broad changes awaiting the area, and access control through median placement and
parcel access will lay the foundation for development. ~nl~anced streetscape far ~~~st
Avenue to the signal at Highway ~oJ~Gg and slang Twin takes Parkway will attract new
develapmentta districts Additionally NiN D~Tvvould consider a proposal to create a
signal at the proposed interchange location, replacing the existing at grade intersection
at ~C~~th Avenge and closing all other access paints except f or ~~~st Avenge. This new
signal and intersection would allow far yore near-tern development in the fast
l~iiC River Gatet~ay District. ~fcial mapping of Twin fakes Parkway should also be
considered. official mapping is an afcial platting process to secure right-of~wa}~ for
future raadvvay improvements. The roadway is platted with the cau~~ty and will be
~;::::_;:~k ~~,:._x,
m~:, transf erred to the city at the time of develapment~
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APPENDIX
~Zoisington ~.c~c~ler ~•aup l~.cF
ee~i~g ~~~e: ;arah ~, X009, ~~~f} ~- :a p~~~n., Elk ~i~er• pity fall
~l~enf: City o~~ Elk Ri~~er, II~Iir~t~esc~ta
~'~ojec~: Eli Ri~rer Focused Area. Study ~l~`~.ST}
~~~rase; ~~T :R.e~iet~ of patentia i~~.terci~ar~~e locatio~~ for I~~ST study
Pre~en~: Haig o~insan, ~irn Po~~ieh NII~~T~ Aryan ~Ia~~es, ~~i; ~ere~ly Bar°r~~ar~ ~ T~~i'y
IViau~er, pity afElk ~i~rer.
`t'he ~neetin was held to review future interchange laeatior~s a~~d atiaer input frarl~ ~~~~~~~
rep~eentati~es o gene~~al location, futu~~e tiz~~efrarrYe and potential finding sourices fat• the futz~t~e
intercharre. The zneetrr~g opened ~rzth an avervie~r off' the l~r•nadcr tz{a~~spo~#~t~a~~ ar~d land u.s~ issues
sl~rrau~~din, the ~il~ Riper l~`~S'Iy. ~~l~e fo~ioi~~g, are the ~~~~lr~rary of canxr~~ents fi~on~ the rneetirlg,
o~re~x~s ~~(a~ed ~~ fie ~'~~r~r~ i~~erc~.ange~
l.~ocatian afa fi~t~~re intercha~~ge should be located 1 ~~t.~e soz~ti~ fraln the center•lit~e o~'t~~e ~ilrt~vay 1.01
and ~igh~ays ~ DIl G9 ir~terchatle, Additianall~, the fz~.r~her• zaorth the interchange mould life zz~crease
tl~e co~~nple~ity ~~' const~~E~ction far tixe 1 ~ 1 and 1 X11 ~ inter'char~e, ~~x enera~, tine f~r~her• tine izaterchange
is lncatcd f~ioru. 7e tD1 ~ 011, C9 ,~~7terchange there rs a strong ~r.elahoDd the project casts ~vau]~
decrease due to lass a.cgraisition eost~ and design caz~lple~ity.
11ID~T had zoo pre~'erence to it~ter change either 1 mile s~r~th of I~ig%~~ay 1 ~ 1 and ~Iigh~~ays ~ 0!159
iz~tercl~arrge or further south r~eaz~ the locatio~~ identified in the SRC ar•ol~r~d ~~~~' A~ver~ue.
~ Tiae c1t~ should h~u11d ~ case far a futu~.e iaatez'cX~arrge thaugll.
r
o Fl~rther study -~ ea~neti°ies Ierl~i~oz~~ez~tal rev~e~~
o Aa~uisitlan af~aeces~~~r prape~~ies of zaeeded ~~iglat~o~F ~~~ .
o arl~ng to~~~al'C car~tralled access poitlts at 17 tit and 1 C~~ ' A~enr~es arty, while closing all a~ier
access points tl~o~ugh the cor•~•idar
~ The east of an ir~tercl~ange ~Tc~uid lie split bet~~~een MI~TI]~T and the city ~°I~~~O°Ia. I~oe~er, the
perce~~tage l~reakda~~n .for the interchange east could reach ~5°I~ ~~~~, .~d 1 ~°Io Cry rfthe crty z~7eets
certain pez~for~n7ar~ce ~~ric chec~.list itct~~, For e~a~n.p~e, if the interchat~.ge is vacated a~~ au.
ur7der~pe~lorrni~~g biter ~.egiozaal ~o~~~dor SRC} there is a.1 ~°~o cost S~1rir~g~ ~'ar ~1~e ~it~y~ Alsn,11D~T
currei~tly has i~o f~lnding far eve~a the ~~°Io po~tran aftile ri~teiichar~ge~
~~T pz~o~ided ri~forn~atroia on file Treater Nfir~nesa~, Interchange olicrtat~on Program which has an
allati~nent of. 40 rriiilian dollars for ii~f~~astructure ir~~pi~a~ei~~er~ts far out~state i~z~~esata. ~ Iae~er, az~iy
~ ~ ~1~illior~ is the ~a~axiz~~run a~vard foi~ ~ si~~gle prof ect, ~~~T provided the checl~list fo~• laroj eci
sul~il~ittals ~~+itl~i e~altiatiaz~ categaz'ies ranging fr~oi~~ ecanarrirc~ developz~nent, safety and eangestran rclref~
Tl~e sz~lamittal pacl~et has . due date of dune 12~', ~D09 pith a gei~ier•al start. time of X01 ~,
~ddY~io~~al co~me~.~~~
~ A rrxetza~distr•ict r~sr~rfaciz~ig project mill tale place ~ ~~ l~, This pra~ect ~~rill ir~cl~ide ~ mill acid overlay
of igh~va~r 101~~9 and ~~ill also included closure oft~edian czossir~gs e~c~ept fai~ 171` Avenue ar~d 15~~'
A~~cn~~e, l~igl~tdin~ and iight~aut access paints o~ild stzll remain as closure afthese access poi~at
in~~olves pi•ope~~ty righi~s iss~~es,
~ Dear trz~~,1VIND~T sha~rcd so~~~e reluctance for an additional signal at ~5~~ ~,ve~ruef h~~ever ~~roirld
. __ N.:_~~~~,~ consider a propr~sal for a si~~al at 1~' Avenue that incl~dcd access clos~~res t~~ er~llat~ce safet~r r~~eas~ures
.~, ^o- f ~;~ th~ir~ugh the coi~rida~•F
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