Loading...
DRAFT 171ST STUDY 04-27-2009_ ~ { y .~ ,~ i3 ,_ ~ ~. ® ~ _ . K.' j p ~ .$z` .. :.. 8 mod. $ ~' ~ ~ ~` ~~.f } .~ '~ ~ 5~~ } ~.. is ~~ ~v.# '~St ~ ~ ~¢~. ,$ "$ 3 ~ 3 ~ v :S ~ ` ~€' _ §~.~''rt };~ ~ $ s`~i~ ~~~~%R ,tea t i f ~<. { _ e _. .._ ;, _- __ a i^ ^ City Council: Mayor Stephanie Klinzing Paul Motin Nick Zerwas Matt Westgaard Jerry Gumphrey Planning Commission: Kevin Scott, Chair Dana Anderson Pete Lemke Chad Westberg Chad Staul Ryan Austed Troy Ives M- ~ ~ City Staff: Lori Johnson, City Administrator Jeremy Barnhart, Planning Manager Cathy Mehelich, Economic Development Director For further information contact: Elk River Planning Department 13065 Orono Parkway Elk River, MN 55330 Phone Jeremy Barnhart, Planning Manager email: jbarnhart@ci.elk-river.mn.us 1 i ^ ~. rr. ~ ~ '~ ~ ~ '~ ~ ~ '~ +~' ~ ~ ~ i introo~ct~on The master plan for the Elk River i7~st Avenue FAST outlines a course for change responding to both the near and long term development & transportation realities impacting the site. The FAST ultimately becomes a series of unique, interconnected districts showcasing residential, office, retail and industrial uses within the fabric of an enhanced open space and transportation network centered on the Northstar Commuter Rail Station and Highway io~i6g. The z5-3o year planning horizon recognized and guides land use and transportation changes for the area to allow for both near term investment with a constant eye toward the future vision. The master plan for the FAST provides the framework for a future development pattern recognizing strong development potential in the area today and the economic, political and environmental constraints for future development. To some degree, the vision challenges the current pattern of development, but is also grounded in reality ensuring the master plan doesn't exceed the development capabilities of Elk River and that the timetable for implementation is feasible. INTRODUCTION With the City owning 75 acres of land in the center of the study, known as the Gateway Business Park, and the Northstar Commuter Rail Line beginning operation in fall of zoog the time is now for planning major investments in the area to maximize the long term benefits for the community. The transition from the Northstar commuter bus to commuter rail will likely bring more than just trains to the FAST. As the first commuter rail line in Minnesota, the arrival of the train presents an opportunity for both near term and long-term investment in the area. The Northstar station will provide an attractive location for business and housing like Elk River Station over the next several years. Over time, as development and intensifies, the master plan envisions the station area transforming into a unique, successful transit-oriented district with the economic and cultural benefits of other station area villages located along more mature commuter rail lines such as the METRA line in suburban Chicago. The commuter rail station is anticipated to provide a level of immediate benefit to prospects for service retail, offiice, industrial and residential development. While the rail station will initially provide an important marketing advantage, transit will likely become more engrained in our transportation patterns and the station's benefit to development will become measurable. Regarding destination retail development, it is anticipated that Highway io/~6g improvements will be the driving force. For the foreseeable future, destination retail development will rely on highway access and visibility. However it is anticipated that, over time, the commuter rail station will assume increasing importance in delivering customers to all retail venues. The Elk River i7ist Avenue FAST will have an employment focus, leveraging key assets such as the Northstar line, Great River Energy and the Elk River Resource Recovery Facility. The plan seeks to maximize land value and create nearly 6,000,000 square feet of retail, office and industrial space, and create an estimated 800 million dollars of development value for the City of Elk River at the maturity of the plan. The master plan also seeks to develop upwards of ~50o housing units and provide an array of household alternatives at varying prices amidst new parks and open spaces allowing recreational and social opportunities for all ages and the opportunity to connect within the community. The master plan for the i7~st Avenue FAST seeks to develop a successful zest centuury economic model. The plan contains the details and parameters for future development and redevelopment with a focus on implementation and providing the flexibility to respond to future opportunities and challenges. I ~1 e ,~ ~ ~ ~ ~ err ~ ~ ~ ~r BacK~roun~ The ~7ist Avenue FAST project area offers one of the more important development and redevelopment sites within the City of Elk River. With the strong orientation toward Highway ~0~~69 and the opening of the Northstar Commuter Rail Station slated for fall of zoog, the dynamics of land use in this portion of the community are likely to evolve. In order to plan for the future of the FAST, background knowledge of the study area is vital in order to fully understand the potential of the site. This chapter begins with an overview of exiting land use and transportation conditions describing the starting point for the master plan. The chapter concludes with an analysis of the opportunities and challenges of these existing conditions. BACKGROUND SITE CONTEXT Situated in the southeast portion of Elk River, the FAST area comprises nearly 70o acres. The project area is bound by State Highway io~~69 to the west with the Mississippi River running parallel to the highway only a few hundred feet beyond. Along the northern edge of the project area a range of land uses exist from office and industrial uses west of Twin Lakes Parkway to high and low density housing and parkland toward the northeast. Much of the land to the east and south of the project area is owned by Cargill Corporation, nearly 75o contiguous acres. About half of the land, mostly to the south, is currently utilized as agricultural research with the remaining land area comprised of a large wetland complex which defines the majority of the eastern edge of the project area and extends in to the site. The Burlington Northern Stnte-Fe rail line bisects the site moving from northwest to southeast and carries a large number of heavy rail trains each day in addition to the Northstar commuter train. The Northstar station is located in the center of the study area, approximately two miles from Downtown Elk River to the northwest. A number of community parks are adjacent to the study area. Hillside City Park, Kliever Marsh Park, Kliever Lake Fields, Babcock Memorial Park and the Youth Athletic Complex (YAC) are all within close proximity. The Kelley Farm, a registered national historic landmark is located just south of the study area along the banks of the Mississippi River off of Highway io~i69. 17131. QV@r1U2 Focused Area STudy ~ Just north of the study area a large commercial center exists at the intersections of Highway i69 and Main Street and extends north to School Street and includes Wal- Martand Home Depot as major retail anchors. Great River Energy has a power plant and satellite offices located northwest of the study area across Highway i6g and has an ongoing operation with the Refuse Derived Fuel (RDF) Plant in the southern portion of the study area to produce energy from pelletized waste created at the plant. Figure z. t: Site Context Map BACKGROUND STUDY AREA The i7~st Avenue FAST project area comprises 70o acres of land, of which approximately X55 acres are wetlands. The wetlands are essentially two large bands running east to west through the project area. There are nearly 8o acres of public right-of-way for streets and the rail line, and 88 acres are currently developed lands that are not anticipated to change. These developed lands include the built portions of the Northstar Business Park (9 acres), Elk River Station housing development (39 acres), and the single family residential surrounding Kleiver's Marsh (4o acres) in the northeast corner of the study area. The remaining land, approximately 388 acres, will be the focus of potential land use alterations for the FAST project. Of these 388 acres, roughly izo acres are northeast and z68 acres are southwest of the rail line. The Gateway area is a 75 acre area of city owned land situated south of i7~st Avenue. This land, acquired from Cargill via agreement, mandates no residential use on the property until zozo. The portion of land immediately east of the Gateway property, west of the railroad tracks is owned by Cargill. The agreement shows a roadway connection through the Cargill owned land to 165th which can occur anytime at the City's expense. The Minnesota Department of Transportation also owns land in the FAST area. MN DOT is currently using the zo acres of land just north of 175th Avenue for aggregate extraction. The Northstar commuter rail station, currently under construction, is now operating as a park and ride with commuter bus service to downtown Minneapolis. The commuter station will have an 80o car surface parking lot, drop- offand twin rail platforms for commuters. The station sits in the heart of the study area along the northern side of the rail line and along Twin Lakes Parkway the major roadway spine through the project area. Twin Lakes Parkway isenvisioned as asub- regionalcollector for southeast Elk River. The four-lane road with median is newly constructed from the commuter station north, and is envisioned to continue to '• ~ `° ~ - the southeast through the Gateway & ,, ~ ~ . , '~ 1 :_ ': ~ _ ~ ,''_'~ ~° ~ ~~ Cargill property in the future serving >:a~: 1 ~ _ u I ~''% :\ s-.4 ;:voR.-rH the businesses and residents of east EI ` River. ~ nyf.J 17'13t. CN2nU@ Focused Area STudy ~,R. -.._.•~ BACKGROUND Major utility lines also run through the project area. A natural gas line with a ioo' easement runs north to south, essentially paralleling Ulysses Street through the southern portion of the project area. Large electric transmission lines extend from the Great River Energy (GRE) plant along the northern wetland corridor to the east. One line parallels the rail line near the Northstar station and extends south to the RDF plant. EXISTING LAND USE Residential Residential land uses are generally located in the northeast portion of the project area as indicated in Figure z.3. The most recent residential project, Elk River Station, was completed in zoo7. The 39 acre high density development includes a mixture of senior rental and owner occupied townhomes and is located just east of the commuter rail station. Single family homes comprise the remaining residential uses, and are situated north and south of 175th Avenue around Kleivers Marsh and the northern wetland complex. Commercial Commercial uses are generally located along Highway io~i6g north of 171st Avenue. This land use primarily encompasses auto related uses, including a large auto dealership, auto repair and auto body shops. Small service related uses also exist within the commercial land use. Industrial Industrial uses include three primary areas, the Northstar Business Park, the ='RDF plant, and the industrial uses near ,r , "' ; 1TISC. QV2f1U@ Focused Area STudy ~ Figure z.3: Land Use Map the station and along Ulysses Street. The Northstar Business Park in the northwest contains light industrial and light manufacturing uses. Much of the construction has occurred within the last three to five years, and only two parcels remain open for development. The RDF plant located along 165th Avenue is roughly 4o acres and includes a public recycling facility. The central portion of the study contains two large trucking companies north and south of ~7ist on the south side of the rail line and small warehouse and manufacturing uses along Ulysses Street. An area north of 173rd Avenue has been improved with the construction of Vance Street, but has yet to see industrial development. Undeveloped Much of the land area between ~7~st Avenue and 65th Avenue is undeveloped. The city owns the 75 acre Gateway tract of land and Cargill owns an additional 8o acres being utilized for agricultural research. EXISTING ZONING As the influence of Highway ~o~i6g illustrates, much of the uses adjacent to the roadway today are zoned highway commercial. Light industrial zoning exists for portions of the Gateway area east of the natural gas line as well as for smaller parcels along Ulysses Street. The RDF plant has an underlying zoning of light industrial with solid waste facility overlay zone. Elk River Station and areas around the transit station are zoned planned unit development, including the two trucking facilities north and south of i7ist Avenue. The Northstar Business Park has a business park zoning promoting a higher design and construction quality than traditional light industrial zones. In the northeast single family residential zoning is split between Ria south of 75th Avenue and Ric north of 75th Avenue. The Cargill owned land in the southeast portion of the project area is zoned agricultural research. Figurez.4: Zoning Map BACKGROUND ~rj ~T L~. BACKGROUND EXISTING TRANSPORTATION Road Network Highway ~o~i69 is the primary arterial running along the western boundary of the study area. Today the roadway is a four-lane, at grade regional highway and has average daily traffic counts (ADTs) of nearly 35,000 trips per day. Currently, the primary access point to the project area is the signalized intersection at i7~st Avenue. Additional access points exist attwo un-signalized intersections at 173rd Avenue and 65th Avenue and a handful of parcels have right-in, right-out access or additional median crossings for access. View of Highway ~0/~69 through the study area 0 "r a L z s °i a: r,~; ~®~ Twin Lakes Parkway serves as the primary collector for the FAST, as traffic from southeast Elk River is funneled south to Highway ~o~i69 to the signal at ~7~st Avenue. The roadway has been improved as afour-lane with a median from Main Street to the transit station, and as a four lane road with no median from the station to Highway io~i69. The roadway is anticipated to carry nearly zo,ooo cars per day in the future and extend to the southeast through the study area to Jarvis Street in the southeast corner of Elk River. Twin Lakes Parkway represents the only rail crossing in the project area. A previous rail crossing was located at 73rd Avenue, but was relocated to the current location for the Northstar station development. Currently only a small portion of 173rd Street remians from Highway ~o~i69 to the rail line and then connects south with Ulysses Street to form the built internal road network west of the tracks. 75th Avenue in the northeast serves as a collector for the residential uses beyond the project area, bringing people to Twin Lakes Parkway. The only private streets exist within Elk River Station. Transit The Northstar commuter rail will begin operation in fall of zoog. Currently the Northstar commuter bus service operates out of the park and ride facilities which are currently finalizing construction. The rail service is anticipating five daily commuting trains to downtown Minneapolis with one reverse commute train per day. The average trip time from Elk River to downtown Minneapolis is anticipated to be 35-38 minutes. Rail The two heavy rail lines are owned and operated by Burlington Northern ~ Sante-Fe and operates as a major corridor for cross country rail transport. On average, nearly 6o to 8o trains per day move through the project area with speeds in excess of 7omph. Noise and safety concerns will be significant considerations for land uses adjacent to the rail line. Sidewalks & Trails A limited number of sidewalks and trails exist within the project area. Those trails that have been built came with recent developments such as Elk River Station and the roadway improvements along Twin Lakes Parkway and 175th Avenue. Northstar commuter rail train Existing rail line crossing at study area RELATED PLANNING EFFORTS The master plan for the i7~st Avenue FAST exists in the context of major transportation planning efforts for the primary transportation corridors through Elk River. These transportation planning studies and their outcomes are critical in defining the future land use direction for the i7ist Avenue FAST. Key decisions on land use will likely be determined by the location of a future interchange for Highway ~o~i6g, as overtime the corridor transitions to a limited access freeway and all existing accesses are eliminated. The following is a review of the transportation and land use planning efforts related to the ~7~st Avenue FAST. zooz Inter-Regional Corridor Management Plan In zooz MN DOT, working with input from the city of Elk River, completed an Inter- Regional Corridor Management Plan identifying alternative strategies for upgrading Highway ~0~~69 south of Highway ioi in Elk River to a limited access freeway. The study identified two options for a future six lane freeway alignment; `Alignment A' essentially running parallel to the rail line roughly 400' away and `Alignment B' the existing Highway ~o~i6g corridor. The study also identified two interchange locations within Elk River between Highway ion and the eastern boundary of the community for either alignment. One would be located near Jarvis Street and the other near 165th Avenue. While the planning efFort was completed in zooz, MN DOT still has not identified any funding for this project in their zo year capital improvements program. Highway to&~6g Preliminary Design and Environmental Documentation Study Currently underway are two City initiated studies investigating ways to solve traffic bottlenecks in Elk River along Highway ~o heading west through historic downtown, Highway X69 heading north through a major commercial area of the community, and the poi & io~i6g interchange. The two studies identify a preferred reconstruction plan for the major interchange at poi and io~i6g, the Main Street and School Street intersections along Highway ~6g and the intersections along Highway io moving through the downtown area west to Lake Orono. Amore detailed review of these regional transportation planning efforts are discussed in the assumptions chapter of this report. Elk River Comprehensive Plan In zoo3 the city of Elk River completed a Comprehensive Plan update for the community. At the time of the update much of the land within the FAST project was undeveloped. In general, the City designated highway commercial uses along the Highway ~0~~69 corridor with light industrial uses beyond. North of the rail line high density housing was selected as the future land use. Two additional transportation initiatives were identified as part of the Comprehensive Plan update. The first initiative was to create a connection between i7~st Avenue and 65th Avenue through the extension of Twin Lakes Parkway, and the second was to investigate a roadway connection between CSAH iz and Highway io~i6g on the far eastern boundary of the community. BACKGROUND BACKGROUND OPPORTUNITIES & CHALLENGES Existing conditions for i7~st Avenue FAST present terrific opportunities, as well as numerous challenges. This master plan looks to capitalize on the inherent opportunities within the study area and address the challenges that exist today. A summary of opportunities and challenges follows: Opportunities » Northstar Commuter Rail Station: The new Northstar Commuter Rail Station will likely bring additional tra f f is beyond the current bus service which could increase development interest. In the long term, as the Northstar commuter rail continues to mature by adding trains, extending the line north to St. Cloud and providing more reverse commute trips, the Northstar line will continue to play a key role in the evolution o f the study area. » Orientation and access to Highway ~0/~69: A primary transportation corridor in the northwest metro, Highway ~o/i6g has the potential to draw new o f fice, retail and industrial uses within the FAST area. In the near term, smaller more service oriented uses could develop nearthe existingsignal at i7ist to help serve the commuter rail station and residents o f southeast Elk River. Longer term with the transition o f the roadway into a freeway section, larger retail and of fice users would likely be attracted to the new interchange location. The visibility provided by Highway io/~6g alone is a tremendous asset for the ~7~st Avenue FAST. The volume o f tra f f is moving through the interchange at the Highway ~o~ & ~o/~6g provides high visibility for a potential iconic development - in the north, while at the southern end o f •=- the study area the vast acres o f agricultural •~~ Secondary sWtly area - - Gateway Wumw wrk Natural gu tine (97.5' eax+m.1 • • • • Overneaa Utdiry (10' easemt.l Waco "~' t,; tt .t 1•~ ~T H iv drab s 3 ~ Ok.i land provide a threshold for another iconic bookend development and views deep into the site. The RDF plant may have the potential to reinvent itsel f as an iconic anchor f or the area at the southern gateway to Energy City. Twin Lakes Parkway: Envisioned as the sub-regional collector for east Elk River, Twin Lakes Parkway has the potential to be a strong community corridor. Nearly all businesses and residents o f east Elk River will utilize Twin Lakes Parkway for access to and from the larger regional highway system. Streetscape enhancements, appropriate lighting, landscapingand pedestrian amenities along the corridor will help transform Twin Lakes Parkway into a complete street for automobiles, bikes and pedestrians. The physical design and geometry of the roadway is an ~, 17181. C7V@r1U@ Focused Area STudy Opportunities and Challenges Map BACKGROUND important consideration for establishing the development and transportation patterns and can aid in better positioning land in the project area f or development or redevelopment. Gateway Business Park: The 75 acre city-owned gateway business park land is situated in the south central area o f the FAST. The green field site allows f lexibility for the city in determining transportation improvements and land use decisions for the broader area. » Energy: The excess steam generated at Great River Energy's power plant facility could potentially provide portions o f the FAST area with a district heating/ cooling opportunity. Additionally and collectively with the RDFplantand the Energy City brand for Elk River could spawn economic development with a green energy production and green industry focus for in the FAST area. Natural Systems: The large wetland complex o f fers great amenity opportunities for residential and o f Tice development. The sweeping views over wetland and the preservation or enhancement o f the existing natural wetland and woodland vegetation can help emphasize some o f the distinct characteristics o fElk River. Combined with an integrated trail network to connecting these natural amenities with city parks and commercial nodes these broad natural systems can be a tremendous asset to the FAST project area. Challenges » Future transportation and access changes for Highway ~o/t69: One o f the biggest challenges for the i7tst Avenue FAST will be understanding how future transportation shifts will a f fect access & circulation through the study area for existing uses and for any new development prior to Highway ~o/i6g becoming a limited access freeway. Finding a way to make intelligent investments in the near term without negatively impacting potential future investments will be crucial. Potential environmental issues: In the near term, the environmental issues will likely surround wetland mitigation strategies in concert with green field development. However in the long term, with the abundance o f automotive and trucking uses in the FAST potential issues with soil contamination may exist with redevelopment. Environmental clean-up o f potentially contaminated sites could become costly endeavors, particularly in ex-urban communities with abundant green field development potential. Noise - Highway to/~6g and the rail line: Noise levels f rom the f refight trains as well as highway tra f fic on Highway ~o/i6g will likely have a signi ficant impact on residential land uses in the study area. Finding the appropriate location for residential uses and determining the proper uses adjacent to the rail lines must consider noise levels and identi fy potential mitigation techniques. Major utilities: An existing natural gas line bisects the southern hal f o f the site constraining development potential, as no structures or significant grading can occur within the easement. The location will also have a larger impact on the internal roadway system and overall parcel configuration for the FAST. In addition to the gas line, large transmission lines run through the center o f the study area between Great River Energy and the RDF plant. 171St. aVef1U2 Focused Area STudy Gateway area owned by the city Elk River Resource Recovery Facility (RDF Plant) Great River Energy Power Plant Facility ~ - +~ .~ ~ ~ ~ ~ ~ oB~eccves any assumPC~ons OBJECTIVES Before the planning effort commences with design alternatives, it is paramount that the core objectives for the project are understood. These project objectives help to ground the planning process ensuring the goals set forth by the Elk River Economic Development Authority (EDA) are met. After discussion with the EDA at the beginning of the planning effort and continued evaluation throughout the process, the core objectives for the Elk River FAST are as follows: Leverage commuter rail station and city-owned lands as triggers for development. The Northstar commuter rail will attract noticeable attention in the fall of zoo9 as the first commuter rail line to begin operation in the Twin Cities. Determining the appropriate level of development anticipated to follow the commuter rail opening must be strategic. The city owned Gateway land represents the strongest opportunity for future development. The questions surrounding development in the Gateway focus on the appropriate uses and scales and what level of infrastructure investment will be needed to facilitate development. The central location of the Gateway affords the city significant influence over infrastructure and development investment giving the city broad control of the future of the FAST. 1 OBJECTIVES AND ASSUMPTIONS Establish long-term vision for study area that will encourage practical and achievable development while optimizing community value. Establishing abig-picture vision for the FAST that is practical and achievable is an important goal. The broad community vision must be in concert with the economic realities of infrastructure investment and achievable tax value, but at the same time provide a strong community image for the project. How can the FAST become both economically and environmentally sustainable while leveraging assets of the Gateway and the commuter rail station? Identi fy ways to better link study area with broader community. Addressing roadway connections, trails and potential transit options for both the near and long term must be identified as part of this plan in order to strengthen the economic ties to greater Elk River. Suggest how study area can distinguish itsel f as prime development district. In order to set the FAST area apart from other development areas in the region, the master plan should suggest the critical design criteria to establish the district. Opportunities exist with transit-oriented development, innovative energy initiatives and low-impact development. OBJECTIVES AND ASSUMPTIONS GENERAL ASSUMPTIONS In order to plan for appropriate land use and transportation investments for the i7ist Avenue FAST, certain assumptions were made in order to focus the planning effort and set a distinct framework and vision for the future. General assumptions for the planning effort follow: Major transportation improvements will be a primary development trigger. The often familiar trend in commercial real estate will likely play out in the FAST, new development and redevelopment typically follow transportation and public infrastucture improvements. The first primary trigger for development will be the Northstar commuter rail station opening in fall of zoog. The allure of the first commuter rail line in Minnesota will likely solicit interest from the development community. Additional roadway improvements through the Gateway will likely also trigger development in the area in the near term. In the future, the reconstruction of the ioi~~o~i69 interchange and the conversion of Highway io~~6g to a limited access freeway will trigger significant land use and transportation pattern changes in the in the ~7ist Avenue FAST. Twin Lakes Parkway will be extended to become asub-regional collector for improved access for east Elk River. The Elk River Transportation Plan identifies Twin Lakes Parkway as level 6-B urbanizing collector from CSAH ~z to the signal at i7ist Avenue. The transportation plan also indicates the continuation of Twin Lakes Parkway to 165th Avenue serving as the sub- regional collector for southeast Elk River. Land uses will become more intensive over time. As infrastructure improvements are made and ridership increases with the Northstar commuter rail it is likely more intensive development will occur throughout the FAST project area. Future Highway ~o/t6g access to study area will be farther south than t7~st Avenue intersection due to MN DOT spacing requirements. The current intersection of i7ist Avenue and Highway ~o/i6g is less than i mile from the major interchange at Highway ioi and Highway io~i6g, a typical rule of thumb for interchange spacing. MN DOT mandates the future interchange must by at least ~ mile south of the Highway ioi & io~i69 interchange for safety purposes, allowing for proper construction of on ramps and off ramps. A location not supported by MN DOT wil likely not be completed. Study area is in development competition with other districts in & outside Elk River. Within Elk River a large commercial center exists just north of the project site along Highway ~6g near Main Street and School Street, and captures much of the commercial ;; 17181. W2r1U2 Focused Area STudy 15 OBJECTIVES AND ASSUMPTIONS business for the community. In the future a broad commercial redevelopment area is planned for portions of the gravel mining area further north along Highway i69. Regionally, an new commercial center anchored bySuper-Target (relocated from Elk River) was recently developed across the Mississippi River in Otsego. At the intersection of Highway ~o~ and Interstate 94 in Rogers a broad area of commercial and retail uses exists. Existing transmission lines and gas main are likely fixed. Due to the extensive costs of relocating major 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 new river crossing (bridge) in Dayton or Ramsey would not substantively change development strategies for the study area. The location of the proposed future river crossing is situated too far south along Highway ioj~6g to have any major development impact on the site. REGIONAL TRANSPORTATION ASSUMPTIONS The i7ist Avenue FAST is situated at the nexus of major regional roadway corridors in the northwest metro which have a significant impact on the future of the study area and the community of Elk River. The following are the regional transportation assumptions for the master plan: Highway improvements planned by the State will be key determinant in timing and type o f redevelopment in the t7~st Focused Area Study. Understanding the timing and scope of future changes for the corridors will allow for the appropriate planning and level of investment relative to the future improvements in the corridor. Transportation will guide development strategies and vice versa. Location of a future interchange location will have the significant impacts land use surrounding the interchange. Elk River can influence transportation investments with plans for development. Through the preparation of this master plan and subsequent studies, the City has the ability to influence MN DOT for the locations and timing of transportation improvements which will have the broadest benefit for the FAST. MN DOT has three key transportation studies: Inter-regional Corridor Management Plan (zooz): This plan identi fees alternatives for upgrading Highway ~o/~6g to a limited access freeway south of the Highway ~o~ & ~0/~69 interchange through Elk River, Ramsey and Anoka. Construction and funding are not currently in MNDOT's zo-year program. Highway X69 Preliminary Design and Environmental Documentation Study (underway): This study identi fees preferred plan for ~o~/~6g interchange as well as the preferred reconstruction plans for the Main Street and School Street interchanges north. Construction and fundingare not currently in MN DOT's zo-year program. Highway ~o Preliminary Design and Environmental Documentation Study (underway): This study will identify a pre ferred plan for Highway ~o upgrades f rom just west o f ~o/poi/~6g interchange, through Downtown Elk River west to Lake Orono. OBJECTIVES AND ASSUMPTIONS Figure 3.~: Regional Transportation Assumptions Map "~i ,ds' i t ~ . ~ '~ ~ ~M ~ ~ CRen~s any case s-ru~ies TRENDS Recognizing emerging lifestyle trends are important for positioning the i7ist Avenue FAST for the future. Having an understanding of regional and national trends impacting housing, transportation and personal lifestyles can assist in the planning decisions and shed light how the evolution of current ideas on development may be shifting. Investigating current trends will also help underscore the need for establishing a sound framework through the planning effort to allow for continued flexibility over the lifespan of the master plan. The following are current trends which may have an imapct on the i7ist Avenue FAST: Becoming More Mobile Many of today's young people will live in twice as many homes as their grandparents did. This may not come as a shocking trend, but it is important to understand that demands for housing are reaching beyond the one-time, single-family home buyer. In the marketplace today many more buyers are looking for flexible and multifaceted housing stock with a range of sizes, amenities and price points. Moreover, buyers are looking for more options for renting and builders are responding with housing products more conducive for turnover, such as apartments and rental townhomes. A diverse housing mix and rental housing options should be considerations for the FAST project. ^ i TRENDS AND CASE STUDIES e 0 V 0 0 a x,. --- y~: ' 0 17131. CN2IlU@ Focused Area STudy Housing Shi f t According to the Metropolitan Institute at Virginia Tech, a surplus of zz million traditional homes (houses built on a sixth of an acre or more) is forecast by zoz5, roughly 40% of the traditional homes in existence today. This suggests more and more homeowners are looking for less traditional single family development, and leaning toward smaller lots and stacked or attached housing where more time can be devoted to their busy lifestyles rather than home repair and maintenance. Additionally, 50% of the buildings that Americans will live in by zo3o do not even exist yet, meaning new development will need to match the current demands in the market place for green or more sustainable development and the construction of more energy efficient buildings. Work Flexibility An estimated 4o million employed Americans will work from home by zoio (compared to z3.5 million in zoo3) according to the The International Telework Association and Council (ITAC.) More and more people are looking for ways to reduce commuting times either by living closer to major transportation corridors or utilizing mass transit. The availability of faster and more flexible communication resources such as fiber optic and high speed Internet access combined with wireless communication allow for the flexibility and lifestyle amenities people are looking for in today's working world. The availability of the Northstar commuter rail transit and high speed communications infrastructure are assets for the i7ist Avenue FAST. Carbon Reduction The ever growing "green" movement has become a mainstream philosophy for many. Today more and more people are demanding green development practices, mass transit, walkable and bikeable communities and are becoming proactive in setting policies for local sustainability all with the goal of reducing carbon footprints and consuming less energy. On-site renewable energy generation, recycling programs and more compact, denser living and mixed-use development are becoming more popular. The FAST area is positioned well to capitalize on this trend with the Northstar line and the energy potential from GRE and the RDF plant. CASE STUDIES While no individual project directly correlates to the i7ist Avenue FAST, a range of case studies with similar elements were examined to understand success and pitfalls of the relative aspects in each project. Five case studies looked at various components of transit and development combinations that are reflective of the conditions surrounding the FAST project ranging from a traditional transit oriented development, a retail town center, a transit oriented office and technology park, a traditional business park and an eco-industrial concept. Housing shift suggest less demand for traditional single family housing Work flexibility suggests that more people will be working from home Proactive policies for sustainable practices are pushing communities to reduce carbon footprints TRENDS AND CASE STUDIES OI"2nC0 StC~tiOtl: Hillsboro, Oregon Project type: Transit Oriented Development Located in Hillsboro, a suburb west of Portland, OR Orenco Station is a model for transit oriented development. Consisting of a town center, retail center and housing types ranging from apartments to townhomes and single family homes on small lots of only 4,00o square feet this TOD project has aproject-wide density is upwards of i8 unitslacre. ~ _... ~, Site Plan „J S-_~ion ~' Range o f housing types _ ,~. Mixed-use development ~ 17181. CN2r1U2 Focused Area sTudy TRENDS AND CASE STUDIES Project type; THe Len Town center: Glenview, Illinois Town Center Proj~~t Land L3s~: The Glen Town Center amixed-use project with retail, restaurants, entertainment and '• 3 housing provide a village core for the city of Glenview, Illinois. The project is located a '- : •` - ~" _ '~" ~" ~;~_ ~ - ~ half mile north of the Glenview commuter rail station on the Milwaukee District North - . - Line of the METRA commuter rail system. The Glenview station is a 39 minute ride from Union Station in downtown Chica o and is the Both of zz stations on the line. g -:. The town center is well connected to the regional roadway network. De~eiopment Schedule: Project €2elevance. 171St. 4V2nU@ Focused Area STudy TRENDS AND CASE STUDIES ILLiIIOiS SCi211C2 ago T2CHIlOLOGY Pgl''K :Skokie, Illinois project type: Office & Technology Park The Illinois Science + Technology Park is specifically targeted as a scientific research hub and economic engine for bio-science technologies in suburban Illinois. The z3-acre project Land. Use: Park will play an integral role in creating the coveted, high-quality scientific jobs that ,. ~ ~ '"~~ ~~ ~' ~i ~~ ~~b'~' m' are driving the zest Century economy. The Science and Technology Park is located at ' ~~ " ~ I ~ • •' • • • the outer terminus of the new yellow line on Chicago's "L", a weekday only commuter - • ' • • • • • •' .. route with limited stops in the north metro area of Chicago. Ride times from the Science + Technology Park to downtown Chicago range from 45-50 minutes. Development Seheduit: v 0 v a Site Plan T V Ul O N b0 Q ^ Office /technology building project pelevance: TRENDS AND CASE STUDIES Project type: Pt^CIir12 St0112: Hoffman Estates, Illinois Business Park .• .. -- - - - - Prairie Stone offers quality office space and great technological infrastructure within a tranquil natural setting. Sears, Roebuck and Company's z,3oo,00o s.f. Corporate Project Land Use; Headquarters anchors Prairie Stone's list of corporate tenants. The development - - ~ ~ is well served by Interstate 8o and is currently lobbying for a METRA station on • • ~ ..~ ... the proposed interconnecting suburban commuter rail line called the STAR Line. ... communities. Prairie Stone utilizes existing natural features as assets for development .... ~ and has implemented an extensive network of trails and open space throughout the project. Development Schedule: c c°.,.... -~S ~ ~ L ++o, . L-. x.t ~ .,.-.f. ..,.. N I - ~::.-~~ ~.a°: .... a ~> ~uture 14 S/ ^ Site Plan ~ 1718C. QV2r1U2 Focused Area S7udy Project Relevance: Focus development on natural amenity TRENDS AND CASE STUDIES susta~naB~e TecHno~o~Y Park: Cape Charles & Northampton, Virginia Eco-Industrial Concept This project has blended environmental protection and business development to create an eco-industrial park (EIP) that serves as a model for similar projects nationwide. The stated goals included job creation, increasing the tax base, and other economic development objectives. Additionally, the Sustainable Tech Park EIP had education as one of their explicit goals. The planning for this park was visionary, with goals such as becoming the first multi-modal EIP; becoming azero-emissions orclosed-loop manufacturing EIP; having all major tenants producing sustainable products with sustainable manufacturing practice, eventually becoming totally energy independent of fossil fuels or outside electricity. Conceptual Site Plan pevelopen~t Scf~ed~le: ~, ~ 17131. QV@f1U2 Focused Area S7udy Project Relevance: -~ ~ ~ pre~~m~narY concepts overview Three concept alternatives were explored for the ~7ist Avenue FAST, each with a different focus for land use ranging from housing to industrial & business uses. For each scheme a phasing plan was developed based on two significant transportation triggers. The first trigger is a potential access to the northwest portion of the site via a frontage road extension. This connection would likely come during the Highway ioi & io~~69 interchange reconstruction. The second trigger occurs when Highway ~0~~69 converts from a four lane divided roadway to a limited access freeway with a future interchange replacing the existing access at i7ist Avenue. The interrelation between future transportation patterns and land uses were critical elements of exploration within the preliminary concepts. In concert with exploring various interchange locations, different roadway configurations for Twin Lakes Parkway and the local street network offered additional options for transportation patterns and adjacent land uses. The following are a summary of the three preliminary concepts and the evaluation of the schemes leading toward a preferred master plan for the i7ist Avenue FAST. 1 ~~ PRELIMINARY CONCEPTS OVERVIEW CONCEPT ONE: Traditional TOD Building off of the traditional transit oriented development model (TOD) as illustrated in the Orenco Station case study, the Traditional TOD concept provides a housing focus for the FAST project area with vibrant mixed use district adjacent to the Northstar station. High density housing is focused around the transit station, both east and west of the rail line, as well as in the northern portions of the project area along Twin Lakes Parkway and 75th Avenue. High density residential would be the focus of the mixed use district immediately adjacent to the Northstar Station in combination with ground level retail and service uses. In this concept a future interchange for Highway ~o~i69 is located furthest north in any of the 3 schemes in order to keep a close proximity to the mixed use district at the Northstar station and maintain the economic viability of retail and services away from the interchange. At the interchange, a compact and intense retail district is envisioned, encompassing only around zo acres assuming long-term, as the area intensifies, it may become possible for more sprawling traditional retailers to take on a more compact and potentially stacked form of development mainting the same square footage, but utilizing less acreage. raditional TOD R~ o~-,ted ~t~ Concept Traditional TOD Concep[ uninterrupted to the south with a connection to the interchange in the central Gateway area. As Twin Lakes Parkway continues south it would wind its way through a more traditional industrial park located between the RDF plant and the rail line. ,~f~ln conjunction with the interchange, Finally, office showroom uses would take advantage of highway io~i6g visibility in the `twin Lakes Parkway would continue northwestern portion of the study area. i7'18C. QV2r1U2 Focused Area STudy PRELIMINARY CONCEPTS OVERVIEW Traditions( TOD Concept: Phases Traditional TOD Phasing Concept Near Term Phase: In the first phase as the current transportation system remains intact, anticipating the continued built out of the Northstar Business Park and as the private market dictates development and or redevelopment of housing & mixed use north of the rail line. Within the Gateway area, a combination of end industrial uses to the south and interim uses in the remaining areas could be developed with the city maintaining land ownership and potentially allowing development through a land lease scenario. Along with early development opportunities, beginning to position property in the northwest of the site for future redevelopment by preserving the appropriate right-of-way and lobbying the rail line for an additional railroad crossing to further pedestrian and vehicular circulation through the area. Mid Term Phase: The next transportation trigger comes with access in the northwest would help facilitate development with an additional roadway connection. In this phase the roadway is built, and the area in the northwest corner is redeveloped to office or office showroom uses. The MNDOT property north of 175th Avenue would also be available for development after the roadway improvements on Highway X69. Additionally, as the timeline on the Cargill agreement expires, the industrial uses could develop in conjunction with the extension of Twin Lakes Parkway to 65th Avenue. Long Term Phase: Finally, as Highway io~i6g is converted to a freeway section with a new interchange, interim uses within the Gateway and land immediately adjacent to Highway io~i6g would likely redevelop to higher commercial ~ retail uses and the missing roadway segments of Twin Lakes Parkway would be completed. As the interchange is built, the less intense land uses would likely convert to more intense off=ice and housing uses and the supporting local roadway network would be reorganized to support the new development pattern. PRELIMINARY CONCEPTS OVERVIEW CONCEPT T W 0 : ffice Village Concept ,~ 0 f Dice Village ~~~~~ ~ ~~ ,.`-~ In this concept an inward looking office village becomes the focus for land use j •''t south of the Northstar station, similar to ~ +' ~ ~~~ the Illinois Science and Technology Park ~• highlighted earlier. Again, a mixed use , district develops around the station, but ~' with more supporting office uses in this concept, however some ground level retail is also envisioned. _ '~ Twin Lakes Parkway terminates directly into a future interchange near the southern end of the study area, and adjacent to the interchange, a more a traditional retail land use is envisioned. With the interchange in this proposed location, this concept proposes relocating the RDF plant and redevelopment the site with commercial ~ retail uses. Again housing is the primary focus for __ ^ ='~"" _ - the northeast portion of the study area, ~ ~ ti but in this scheme high density housing : ~„- is also located in the far northwestern ®"~ .~~~, portion of the site to take advantage of ° ~ ""' --_ • ~ ~.--•. ... river views. A traditional industrial park is once again situated on the Cargill owned ~ _ land between the rail line and the new _ ~ ~~ ~ `; commercial ~ retail district. . ~ F ;~ '' ~, Office Village Concept ^ PRELIMINARY CONCEPTS OVERVIEW „ffice Village .. i ~ ~ .:,. Office Village Phasing Concept Concept: Phases Near Term Phase: In the near term, a similar approach to concept one is envisioned. Continued build-out of the Northstar Business Park, development & redevelopment to more intense housing in the northeast and mixed use development near the Northstar station on the existing vacant parcels would likely occur as the private market dictates. Within the Gateway area, a combination of industrial end users and interim uses could be developed within the framework the future roadway network through a combination of temporary roadways and right-of-way preservation. Again, anticipating future beginning transportation improvements key parcels are positioned for redevelopment in the northwest through right-of-way preservation and conditional use agreements. Additionally, lobbying the rail road for an additional crossings at 173rd Avenue. Mid Term Phase: With the potential for an additional frontage road access in the northwest the land becomes viable for redevelopment, as well as areas adjacent to roadway improvements on Twin Lakes Parkway through the Gateway area and near the additional rail road crossing. The Cargill property could also develop industrial uses beyond zozo per the agreement with the City, however the roadway connection to 165th Avenue could come earlier. Long Term Phase: As Highway io/i69 transitions to a freeway, existing accesses are eliminated and the interchange is built near the southern end of the study area. A large 65 acre area for a traditional retail is built around the interchange and assumes the RDF plant is relocated. Existing uses along highway io/169 begin to intensify into office, office showroom and some residential uses near 171st Avenue. -, l"~` ~:, !~ 17181. QV2flU2 Focused Area STudy j1 PRELIMINARY CONCEPTS OVERVIEW CONCEPT THREE: Eco-Energy Business Park In the final concept a jobs based focus with primarily industrial & office use is explored. All of the land south and west of the rail line is designated office or industrial use. There would be an ecological and energy focus for the industrial and office uses with a focus on green employment. Building on the Sustainable Technology Park model, the Gateway Business Park looks to pioneer the first "closed loop" eco-industrial parkin Minnesota where participating businesses would work together to produce zero waste and zero emissions. The potential to leverage neighboring assets such as Great River Energy, Cargill and the RDF plant could serve as catalysts for the future businesses in the FAST. A future interchange would be located the furthest south of all the concepts, as identified by the I RC plan prepared by MNDOT. The alignment of 165th Avenue turns directly into the interchange and Twin Lakes Parkway again terminates directly into the interchange with a small amount of convenience retail located at the interchange, preserving the RDF plant. Office and office showroom uses would line Highway io~i69 to the north. Again a mixed use district would be developed near the Northstar station with small amounts of retail and primarily housing. Residential would be focused to the northeast, however in this scheme the intersection of Twin Lakes Parkway and 175th Avenue would have offices uses `adjacent to the Northstar Business Park. ~~ . r t, - 2 ~713t. CN2r1U2 Focused Area STudy ~ - -: _~. ~ ~ , y. Eco-energy Business ~ c -~~ R ~ ~ . ,~ , \ ~ '1 ~~ ~_ ~ ~ ~~ ~~~: ~ , Park Concept =.s~ ` ._ _ .~. Eco-energy Business Park Concept PRELIMINARY CONCEPTS OVERVIEW PEco-energy ,::w Business Park Concept: Phases Eco-energy Business Park Phasing Concept Near Term Phase: The private market dictates much of the development north of the rail line as housing would continue to fill into the northeast, the Northstar Business Park would be completed and mixed use would be developed nearthe Northstar station. The Gateway area again would see a mix of some industrial end users and interim uses, and more areas along the rail line and in the northwest would be positioned for future redevelopment. Mid Term Phase: If access is created to the northwest, the roadway connection would likely drive redevelopment in this area. The additional roadway improvements, whether they be the reconfiguration of Twin Lakes Parkway through the Gateway, or the roadway extension through the Cargill property to 165th Avenue would further more redevelopment potential as access becomes more available. The Cargill land would develop as industrial park land post zozo. Long Term Phase: Finally, as the highway is converted to a freeway, Twin Lakes Parkway is connected to the new interchange south of 65th with a small amount of convenience retail and the remaining land along Highway ~o~i69 transitions to more intense office & office showroom uses. PRELIMINARY CONCEPTS OVERVIEW EVALUATION OF PRELIMINARY CONCEPTS AND PUBLIC INVOLVEMENT As part of the evaluation of the planning process, each of the three preliminary concepts went through a public and stakeholder review process. Newsletters were mailed to all landowners in the project area and individual meetings were conducted with key land owners. A public open house was held at Elk River City Hall in March and project website was created to review presented materials and to post comments. Additionally, the consulting team facilitated a panel of experts roundtable evaluation of the concepts. The round table provided expert professional opinions on a broad range of topics relative to the concepts and the FAST area in general. The following are summaries of the comments from the general public, key landowners, and panel of experts leading to the refinement of a single preferred master plan direction for the FAST: Public Comments Most of the comments from the public open house focused on the location of the interchange. Generally, a preference for the northern location (concept one) worked best as most felt it afforded a connection for existing & future businesses. However, some felt the roadway design in this concept had poor traffic flow to the new interchange. Most agreed that land uses along Highway ~o~i6g should remain commercial. Other comments suggested it was nice to have housing within walking distance of the station and at the intersection of the entry to the Northstar station and Twin Lakes Parkway traffic control and pedestrian safety is a priority. Additionally, consideration for bike facilities such as bike racks and bike lockers should be considered for commuters at the station and more trail connections to the station should be implemented. Landowner Meetings Comments The consulting team met with three of the larger landowners in the project area about the future plans for their property. All expressed a desire for their existing businesses to remain and expressed concerned about future transportation changes and impacts to their existing business. Panel o f Expert Comments In an effort to gain broader feedback from the professional development community outside of Elk River, the consulting team conducted a panel of experts round table meeting on the concept alternatives in order to gather input from a broad spectrum of expertise outside of Elk River, but familiar with the market conditions surrounding the FAST. Participants ranged from commercial and residential developers, transportation experts from MN DOT and the Northstar Rail Authority, as well as areas of expertise in public finance, market potential and energy. All panel members had no vested interest in the study area and allowed for a critical outside perspective on the three concept ___. alternatives. The comments below were made by panel participants and are organized .,~ . ~~} ;T13C. QV@nu@ Focused Area STudy PRELIMINARY CONCEPTS OVERVIEW by transportation, land use, amenities and finance categories. Comments in BOLD resonated with the group as critical elements. Transportation: » Reconstruction o fthe ioi/i6g interchange as a comprehensive project will likely not happen within our planning horizon (zo-3o years) due to funding realities. Alternatively, "band-aid" transportation improvements necessitated by tra f fic and sa fety problems will be the norm. » New Highway io interchange accessing the site is possible and would be looked at favorably by MN/DOT in order to clean up sa fety and tra ffic problems caused by current intersections. An interchange could happen independently o f other highway improvements. » MN/DOT will likely close additional median crossings accessing the study area f rom Highway io in the next several years to improve sa fety. It will likely limit those access points to to right-in/ right-out only. » Northstar rail is expected to open in November zoog. The Elk River train station is projected to have goo riders/day. Northstar in formation is at www.mn-GetOnBoard.com » Northstar Rail is planning one morning and one evening reverse-commute train per weekday. Ridership demand may pressure more. » Studies suggest that'/< o f employees/residents in the walking zone o f an LRT station will use transit. Commuter rail capture rates will be less than LRT. » When choosing whereto live, many people "drive" to the point they can a f ford. » There is some talk o f legislatively limiting or surcharging "vehicle miles traveled". This could create a market incentive for transit-oriented, compact development. Land Use: » Early in its evolution, the commuter rail station will have only a minor impact on large scale retail development in the study area but will drive relatively small amounts o f convenience retail near the station. The commuter rail station is seen as a plus for office, industrial and residential uses. » Highway and train noise is a big issue for residential development - a land use bu f fer is needed between corridors and housing. » Housing demand is built on job creation. Job creation in the study area should be key f ocus. The commuter train could be an o f fice/industrial marketing bonus for the study area. » FHA financing o f residential development is dependent on noise levels. » Job-based commercial development market is currently declining. » Development objectives outlined in the three alternatives could not be realized without Highway to interchange. 1' z ,: _. ;~ '17130. W2f1l.1@ Focused Area STudy ~1 PRELIMINARY CONCEPTS OVERVIEW Long-term market assessment: • Easiest: senior & rental housing, industrial • Moderate challenge: o f fice, residential condos Tough: retail (interchange would impact this), strict eco-focused industrial » Absorption o f the amount o f o f fice shown in some concepts would belong-term (more than a decade) » Existing and adjacent uses make the study area an opportunity for "eco-focused" development -especially eco-industrial. Even as few as 5 synergistic uses would be a great success. » Need to think about development that could occur on the river-side o f Highway ~o in order to put the study area in better context. » RDF plant could be bene ficial use. Its visual character should be revamped. » The study area seems like a place that could play to the market niche o f low impact, eco-based. » Maybe two development scenarios need to be explored, one that assumes rapid economic recovery with business as usual in real estate development and another with protracted recovery and an altered real estate/transit climate. Amenities: » Rail station will be a residential and commercial development marketing bonus. » It will be in the study area's best interest to get more reverse-commute trains. » Excess steam from GRE could stimulate commercial market interest. » Creating a pedestrian environment and trail/sidewalk links will be critical. Finance: » City will likely need to subsidize development in some form. » In today's dollars, a new Highway ~o interchange budget would be roughly $~5 million. This would likely need City financial involvement to occur. ~M ~ ~ ,~ ~ ~, ~ a~ ~ ~ ~ _ w. THe master Pan The master plan for the ~7~st Avenue FAST outlines a course for change over a i5 year planning horizon. The FAST will ultimately become a series of unique districts showcasing residential, office, retail and industrial uses within the naturalized setting of Elk River. The master plan acknowledges significant 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. ^ THE MASTER PLAN HIGHLIGHTS » Intensified 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, o f jice 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 of fice uses will create for opportunities f rom 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 o f Minnesota's first "Zero Waste" business park. » Residential villages: Building on the success o f Elk River Station, the master plan suggests areas for a dense, compact and urban form o f residential development, These distinctive villages uniquely responding to the site by taking advantage o f natural amenities and topography and supply residents with a range o f housing options and li festyle choices. » Strengthened pedestrian connections: A network o f recreational trails and com fortable sidewalks will knit together the study area with enhanced walking and biking experiences. This system o f public, highly pedestrian spaces and facilities will provide a crucial amenity f ramework 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 signi ficant landscape f eatures are critical steps to ensuring the essence o f 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 f uture development and transportation patterns. Land Use: The Future Development Framework, Figure 6.i, illustrates the major patterns of development, transportation and open spaces shaping the vision for the ~7~st Avenue FAST. The Future Development Framework Plan prescribes land use categories outlined in the City's Comprehensive Plan ranging from commercial and industrial uses to mixed-use and a new transit district residential with density ranges from 24-32 units per acre. Figure 6.2 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 zoo3 Comprehensive Plan. The mixed-use designation becomes more prevalent and depending on specific 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 6.3 highlights the lands that are most likely to evolve with development or redevelopment as part of the master plan. For the purposes of further discussing land use, the i7ist Avenue FAST has been divided into districts as illustrated in Figure 6.4, the District Plan. Figure 6.5, the Development Yield Summary, outlines the projected level of development for each district. The following is a narrative of each of the districts further illustrating development potential and design character. THE MASTER PLAN iRAN51T DISTRICT \1~. * £ -- ~ ~` RESIDENTIAL: 115.SAC. _ $ ~--- - ~ f=-.::: - - - MIXED USE 122 AC. y. ~37€j ~° ~ ® HIGHWAY COMMERCIAL: 18 AC ~~~' ~ 5 q ~~~ `~ f ~ ~~ -~ . ~a. J', r ~ . E ~ BUSINESS PARK: 125.5 AC. ~ r } ; 3 ~a ~ AGRICULTURAL RESEARCH/ ~ r ~ I. ~ POST 2020: BUSINESS PARK: 66.3 AC. ~ , .\ i~~p PARKS AND OPEN SPACE: 154.5 AC. e ~ n ~ , PUBLIC RIGHT OF WAY: 82.5 AC. ' _, `~- ~~ ra-`- ; ~~`,~, \ ` ~ TOTAL: 700 AC. ~ \~~ ---- • GATEWAY PROPERTY ~'' ~` ~ v : . ~ NORTHSTAR STATION ~ 4 •~ `~ -, \' ~~'~~~ ~ ~ \ \ ~ ^_. _ ' m. ' ~, .. ~, A = . - i PLANNED INTERCHANGE r l ~~~'~ ~ ''' Figure 6.i: Future Development Framework Plan ._. ~fii~- 4~ ~. t ~ l U aop - E00 ~ ^ ' 17191. CNC'f1U@ Focused Area STudy ';~ ~ THE MASTER PLAN nano use ~o~oeY THE MASTER PLAN ~ T/'18C. QVef1U2 Focused Area STudy THE MASTER PLA~J k ., . f t~ _ .The Hinge: ``~ Comrnunlty commetrJal and ~'•~-< Reran ~s ,. " 'Integrate with wetlands _i..'; - , Develognent oden~ to new ` ro ~ }~ ~ : streets ., :;°s~ ' East Elk River Gateway: - , ~ / t~ia+./Corporatlon campus fl ~ ~ Det^eloprneM alert to new rv _' st-ee~ _ ~ > - Inte,Q-ate with wetlands/ , ~ ~ -=" anronrtles '~ ~ ` . _ ~~m •. Exlsting RDF Plant; ,Refnw.v-tlon" rOr /uture Ske des/gn/konk ° ., arcblhcturo ~ ~ - Figure (i.4: Development District Diagram Figure 6.5: Development Summary '17'131:. pVt?r1U2 Focused Area STudy THE MASTER PLAN DISTRICTS & DESIGN CHARACTER The district approach for the master plan looks at key aspects o f development character and prescribes the key urban design principles to follow for each district. These key principles include identi f ication o f building, parking, loading and service zones and the relationship between the enhanced street network and access to development parcels. Zones for stormwater treatment, critical buf fer areas and areas for preservation of natural vegetation and wetlands are also illustrated. Each district is analyzed around these key urban design principles, and highlighted in the text are the individual design criteria for development in each district. This vignette study approach organizes and aligns all o f the unique districts in the project, matching the overall framework for the i7~st Avenue FAST master plan. Mixed Use and Commercial Districts STATION AREA VILLAGE ;" The area immediately `; adjacent to the Northstar ~` _ station is envisioned as 1 vibrant mixed-use district. As intensification of development occurs over time, this district will include vertical mixed-use at the primary intersection to the transit station. Residential uses are envisioned north of the station on both sides of Twin Lakes Parkway and adjacent to the park and ride lot. Long term, housing could develop in conjunction with a parking structure as development intensifies and ridership increases. Office is the along Twin Lakes Parkway south of the transit station, with larger mid-rise buildings framing the street and smaller buildings furtherfrom Twin Lakes Parkway. The development is organized to promote internal circulation for streets and drives and easy pedestrian navigation. Connections between sidewalks, trails and public gathering places are vital to maintaining the success of commercial uses and attracting residents to the district. The character of Twin Lakes Parkway is distinctly urban throughout the entire district combining an attractive, comfortable streetscape, while still functioning as a collector roadway. The round-a-bout at the re-aligned intersection of ~7~st and Twin Lakes Parkway facilitates the turning movements of the projected traffic volumes. Along the street storefronts and business occupy the ground level, while amenities such as broad sidewalks and outdoor plazas with benches and landscaping and properly scaled lighting create a safe and comfortable environment for pedestrians. Trails along the wetland edges tie together with sidewalks and outdoor plazas. On-street parking exists for small segments of Twin Lakes Parkway in front of retail uses. In general, parking and loading areas should be located internal to the larger development blocks utilizing shared or district parking to maximize development along the street frontage and further distance buildings from the rail line noise. In addition, extensive landscape buffers should be planted and maintained on both sides of the rail line for noise attenuation. A strategic approach for stormwater allows for building orientation toward both natural amenities and internal stormwater treatment systems, bringing increased value to development. THE MASTER PLAN THE HINGE ~;- ~~ - This district offers the most ` potential for retail development in the near- . term due to the signalized intersection at i7ist Avenue. The challenge for this district will be maintaining successful near-term development once the interchange is constructed and access from Highway io~i6g is shifted away from the current intersection. The intersection at Highway io~i69 and ~7~st Avenue will likely remain the primary access for the FAST for some time into the future. As residential uses develop north and the commuter rail begins operation, it is likely developers will become interested in smaller, convenience retail and commercial uses at this location. With the inevitable closure of the i7ist intersection, the key for continued success of commercial or retail uses in this area will center on building orientation and connectivity. Buildings must be designed to have a "front" toward ~7~st Avenue and toward Twin Lakes Parkway anticipating the transportation shift. Additionally, an internal street connection should be south of ~7ist Avenue through the Gateway land to Twin Lakes Parkway. This roadway will help ensure viability long-term and adequate vehicular circulation near term as a solitary access point out to ~7~st will not allow for left hand turns due to stacking issues Wetlands provide significant development constraints for individual landowners, but district wide they provide the opportunity to better organize the development pattern through a strategic wetland mitigation approach. Jointly, with the wetland mitigation, a district wide stormwater treatment approach will help minimize stormwater infrastructure. Last, a trail network along the periphery showcases the natural systems and provided additional connectivity. at peak times. Thus, the integration of the northern portion of the Gateway property for design considerations of this -:district is critical to ensuring successful `~` development. ~_ 4 i713t. QV@r1U2 Focused Area Study r . s F. ~.a Future Hinge District Vignette Study EAST ELK RIVER GATEWAY - This district responds to the ~ _, _ preferred location of the '_ future interchange along ` ' Highway io/i6g and suggests a large area of highway commercial land use (i8 acres) on the northern side of the interchange and transitioning to office and industrial uses moving east. The city must balance the level of near-term infrastructure investments needed for development with holding land for future development when the interchange comes. This district will ultimately become the gateway to the commuter rail station and East Elk River. The following are near term and long term strategies for the East Elk River Gateway District centered on the future interchange timing. NEAR-TERM Portions of this district could develop earlier with light industrial uses along the eastern boundary, and more office /office industrial uses focused around the primary intersection of Twin Lakes Parkway and the future road to the interchange. Because of the visibility into the site from Highway ~0/~69 office uses could be viable in the near term and would set the foundation for the eco- energy park concept. The city will need to determine the appropriate level of infrastructure investment for Twin Lakes Parkway given only roughly zo acres of development on the eastern portion of the district. THE MASTER PLAN street and round-a-bout intersection to establish the district character and pattern. Additionally, this district study illustrates an organized development approach for parcel access, placement of buildings, parking, loading, and stormwater treatment. All of which are established by the framework of Twin Lakes Parkway dictating parcel access and sizes. The roadway structure and prescribed access locations will assist in land assembly for a unified development pattern in the future to ensure adequate East Elk River Gateway District -Near Term Vignette Study THE MASTER PLAN ~~--~,~ - ,, _ __~- BUILDING ZONE ~~ ~ PARKING ZONE .,; lt}6 '1T13t. QV2r1U2 Focused Area STudy ME, LONG-TERM The construction of the interchange and connecting street network will likely bring larger more traditional retailers to the district. However, in the near term the city would pursue a traffic signal at the future interchange location. An interim access agreement with MN DOT could involve closing remaining access along Highway to~~69 and consolidating access to ~7~st Avenue and the new signal at the future interchange. If this were to occur, the roadway connection through the Cargill land would need to be built to provide the connection to 165th Avenue and the RDF Plant and Cargill offices and the 165th Avenue access would be eliminated. This signalized intersection would likely remain for a long time in the future. When traffic counts warrent and funding is available, Highway io~~69 would transition to a freeway, the interchange would be built around the existing uses and access at 171st Avenue would be eliminated. The design of the interchange should be studies earlier, as the potential for a folded diamond maximizes development potential to the north on a larger more developable site, and situates the on- ramps and off-ramps on a narrow site split by the natural gas line. The natural gas line still exists beneath surface parking and buildings are situated accordingly to avoid the gas line. An internal network of tree lined drives provide development structure for the larger parcel and reduce the appearance of vast parking lots. East Elk River Gateway District -Long Term Vignette Study THE MASTER PLAN Employment Districts NORTHSTAR BUSINESS PARK Only two parcels remain for ' development in the ~..': >. . _ _ Northstar Business Park and } ' ~' marketing efforts should C continue to complete the business park. The remaining sites are smaller, irregular shaped and bisected by the natural gas line. Simple site studies illustrating development potential could allowing An opportunity for a heavy rail spur could exist for the industrial uses running parallel to the existing rail line, but no negotiations with BNSF have occurred as part of this plan. prospective buyers to better visualize the site. Further subdivision of the larger lot Example of a Business Park building may help attract smaller buyers. POST 2020 BUSINESS PARK This district is situated on Cargill owned land and is planed for light industrial use with the eco industrial brand. Development will not occur on this land until 2020, unless Cargill's plans change. Twin Lakes Parkway continues to the south through the district and establishes the development pattern. Parcels would range in size from roughly 5 to io acres and would have an organized development pattern between all of the parcels of building location & expansion area, parcel access, parking & loading and stormwater treatment. Generally, buildings are located toward the street with parking at the side and loading in the rear. Access for loading and stormwater treatment facilities could be shared between parcels. Twin Lakes Parkway streetscape unifies the district with lighting, signage, boulevard trees and sidewalks connecting employees north to the retail uses and commuter rail station. RDF PLANT ~-- -- - As the eco-industrial park concept evolves for the southern portion of the f•;. ' ~' FAST, a reinvented RDF plant could play a large role in the success of the '`~ district. The city should work closely with the RDF plant on future planning to refurbish the facility as anchor for the eco-industrial park. ~'~ As the waste to energy industry continues to grow, the addition of the - rail spur may become integral to the future of the RDF plant. Finally, with the sweeping views across the agricultural lands from the south there is a tremendous opportunity for the facility to become the marquee signaling the entry to the eco-industrial park, and iconic gateway to "Energy City" along Highway ~o~i69. The architecture and site design of the 4o acre parcel should announce the presence of something special, rather than a non descript industrial use. Conversely, if the RDF Plant goes away, the site could transition in the long term to retail use, base on the size and location of the parcel adjacent to the interchange. THE MASTER PLAN THE PINNACLE - The Pinnacle District is the ,~_ nan-ow, underutilized area in ~ the far northwest of the A`~~ study area. Access is ' challenging for much of the site, but opportunity exists with strong highway visibility. The timing of access changes along Highway ioJi69 will have large effect on development and redevelopment in this district. ~NEAR-TERM~ With limited access and numerous small parcels it is unlikely major redevelopment will occur in this district in the near-term. Rather, capitalizing on recent investments with the extension of Vance Avenue select small industrial users with limited access needs and relatively limited investment fit for the undeveloped portion of the district. Redevelopment of the two vacant sites north of 73rd Avenue could allow for office or office showroom uses, however, a median crossing will be closed at 173rd Avenue with the planned zo~z MN DOT resurfacing project could impact any high traffic uses. The frontage road will remain as the primary access for uses along Highway ~oJi69, but the intersection at 73rd Avenue should be reconstructed further east with any redevelopment for additional safety measures. Extending Vance Avenue to the frontage road and the addition of district signage icons will help increase visibility for small business behind the frontage road users. As these uses evolve, steps should be taken to create attractive building fronts and organizing the development pattern. . The organization must include well .`°- landscaped parking to the front or side of the building, and well screened loading and storage areas located behind the buildings. Stormwater treatment can take on a district approach internally to the larger blocks of development. This framework of streets, utilities and Stormwater treatment sets the stage for broader long term redevelopment which could occur with an additional access to the north. $ "'18C. CN2r1U2 Focused Area Study The Pinnacle District -Near Term Vignette Study ~l_ONG-TERM~ With the reconstruction of the Highway ioi and io~i69 interchange and proposed access road connecting to Carson Street, an opportunity exists for corporate campus site taking advantage of the highway visibility and river views. The development intensifies around the earlier pattern of infrastructure investments from streets & utilities to stormwater. Vance Street becomes the primary spine heading north to the Carson Street connection and the existing frontage road is removed, but still contains the utilities and serves as a fire lane for the development. Buildings are oriented toward the highway to capture the visibility and the stormwater treatment area in the center of the site is enhanced as an amenity for the employees. A buffer is maintained along the rail line and smaller office users fill in near the tracks. Parking is internalized and interconnected between the buildings and strong, more direct roadway and sidewalk connections back to the commercial and retail areas at the Hinge and Station Area Village Districts are constructed. THE MASTER PLAN g~ 0 100' 200' AQO' [' VEGETATION ~: .,_., ~,'' .,. :. ~ ~ v The Pinnacle District -Long Term Vignette Study THE MASTER PLAN „~;a • t ~_ OFFICE VILLAGE LONG-TERM - Any redevelopment within `~ this district would likely not .occur until major ~'~.r' transportation patterns ~. change. The redevelopment would occur within the boundary of the existing road network and natural gas line. Generally, larger office ~ office showroom uses would exist along Highway ~0/~69 taking advantage of visibility and the relatively flat topography. Smaller, flexible office uses would locate along Ulysses Street where topography and the natural gas line pose challenges for larger building footprints. At the center of this district are strong roadway connections linking adjacent districts to the north and south. This new central roadway provides more direct access to Twin Lakes Parkway via ~7~st Street and connects employees to the commercial areas in the Hinge and around the commuter rail station. Again, a collective stormwater treatment approach maximizes development efficiency and serves as an amenity for development. Overall, an organized district development pattern is implemented across parcel boundaries and takes into consideration building placement, the internal street network and parking & loading access to ensure a district wide pattern that functions for surrounding districts as well. 17'I8t. pV2nUe Focused Area Study Office Village District -Vignette Study Small office / o ffice showroom design character THE MASTER PLAN Residential Neighborhood Districts ELK RIVER STATION i~~T-- Elk River Station is a 4 ~;., `~<.; successful model for higher ~ ,i`: density housing near the ` transit station. The '~ development provides multiple housing options, in a well organized, compact development pattern. HILLSIDE HEIGHTS This district showcases a ~1 ;range of housing options _r `~_ 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. The 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 Existing Elk River Station housing near the intersection of 75th Hillside Heights District Vignette Study 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. _~ 17181. QVGf1U2 Focused Area STud~ 5~! THE MASTER PLAN SUSTAINABLE DEVELOPMENT Throughout all districts in the i7ist Avenue FAST, sustainable development is a fundamental goal. The following are aspects of sustainable design focus for the master plan: Energy Generation: In addition to utilizing excess steam from the GRE facility to reduce energy demand for the study area, potential for on-site or district wide energy generation initiatives are a focus of the master plan. Solar, wind and geo-thermal are all viable options for alternative energy sources. Solar panels could be used for operation of solar hot water systems or photovoltaics could be installed converting the sun's rays captured by the solar panels into direct current energy. Smaller helical wind turbines could line the rail line capture wind energy created by trains, and larger wind turbines could be implemented in the industrial zones. Geothermal technologies such as ground source heat pumps can function as heat source or heat sink depending on the season providing climate control for various building types. Smaller helical wind turbines fit individual Toward Zero Waste: A goal for the industrial and commercial districts outlined in the developments plan is striving for zero waste or recycled by-products from manufacturing operations. The city should promote and seek out groups of business that could share in the eco- industrialpark model of recycling industrial by-products to eliminate waste. LEED Building certification: LEED building certification should be considered for buildings in the FAST, and be utilized as a benchmark for new development. The Leadership in Energy and Environmental Design (LEED) program under the U.S. Green Building Council certifies buildings for energy efficiency, waste reduction, use of recycled materials and other sustainable construction practices. Architectural features and non-mechanical systems such as window placement, high ceilings, overhangs and natural ventilation are passive design strategies which can be utilized to warm buildings in the winter and promote healthy indoor air quality. Dark-sky friendly lighting: The master plan promotes reducing light pollution and reducing energy consumption of outdoor lighting and suggests that outdoor lighting in both private and public spaces include full cut-off optic light fixtures for "dark-sky friendly". LEED is used as a benchmark for new development Innovative stormwater practices: All districts described in the master plan outline collective and integrated approaches for stormwater treatment. Opportunities range from stormwater retention ponds and created wetland to bio-swales and rain gardens. In more intensely developed districts, cisterns, green roofs and porous and permeable (paving are all recognized stromwater treatment alternatives in the master plan. Rain gardens and in filtration swales should be considered for stormwater treatment ~2 1713t. QVEYIU@ Focused Area STudy Solar energy for heating water and direct current energy Full cut-o ff optics provide dark sky friendly lighting TRANSPORTATION & TRANSIT SYSTEMS: Highway ~o/~6g As the expert panel indicated, Highway ~o~~6g is the key for success of the ~7ist 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 io~i69 to a freeway will be a significant trigger for development and redevelopment and integral to the roadway change will be the placement of the future interchange. Futurelnterchange The location of the future interchange has significant land use impacts. The master plan examined two locations for the interchange. The first, a more northerly location near the curve of the highway north of the RDF plant, would allow the interchange closer proximity to the Northstar commuter station, Gateway property and existing commercial uses and would provide more direct access to the study area. However, land near the roadway would likely sit undeveloped waiting commercial development with the future interchange, and the location here would likely incur increased costs with relocating portions of the natural gas line. The second option would be south of 65th Avenue, similar to the IRC location. In this option, more land in the Gateway would not beheld for future right-of-way and could develop earlier, but the location is more removed from the existing commercial uses and agricultural land would likely occupy a primary corner of the interchange. The master plan recommends the interchange placement should be at the northern location. 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 benefiting from the interchange. Additional Considerations for Highway ~o/~6g In zoiz, MN DOT plans a resurfacing of Highway io~i6g. As part of this project, it is understood that MN DOT will be closing all medians except for i7~st and 165th Avenue for safety reasons. Altering access points in this manner will likely initiate some turnover for uses along Highway io~i69 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 i7ist Avenue to better connect the land uses west of Highway io~~6g to the study area. THE MASTER PLAN THE MASTER PLAN TransPOrtat~on networ^ic ~~a~ram ~'^~~^ ~ Rim CRE PIaM R/ISltle - - ~ .... ~ 3., . ~ Puk _ _ .. Y it ti"` , ~,:., .,,,' ~ w~; . ~~.~~~ j .~ -, ,•~ '' Elk Rhei Shtbn ~ AM access cbsed • 266tl100Afleebd 1D 1' ~ ~, - "~--•y x -. • ~ i ~ t ~ ' 1 -..s..s"9 ~ ~e~ ~ 1~ ~ ~~ ~~ n ' f 7 ~ ~ ?e '• y ~esngace ~ ~ aaa ~ 17~rd. Av0a11B t0 ~ lames Parkway THE MASTER PLAN Local Street Network The street system changes in the master plan are suggested in order to improve traffic 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 165th Avenue and the conversion of Highway io~i6g 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 4o mile an hour design speed, and lower speeds through the Station Area Village District. Access management along the roadway defines the development pattern and general parcel configurations for numerous uses. Full intersections require aminimum ofone-eighth mile between them, while right-in, right-out access occurs at roughly 30o 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, ~7~st Avenue and the roadway leading to the interchange. Round-a-bouts in these locations will aid in traffic flow and will be designed with large radius and roll-up aprons to accommodate truck traffic. A traffic signal is suggested for the intersection at the transit station providing a safe crossing and to benefit the retail uses in the mixed use district. rwn ~aKes ParKwaY section (m~ceo use o~str~ct) i ~~~ 17131. QV@f1U2 FocusedArea STudy while roll-up aprons in the center allow large trucks to navigate the turnning radius. THE MASTER PLAN _ Commercial streets in mixed-use and ,;, ~' ' retail areas have extensive streetscape ~.. ~: _ a~ _ ~ elements. Site furnishings such as ,~° . _.~t y benches, bike racks and trash receptacles r should be installed on wide sidewalks. ~. , 4{`,y. ~ Ij ~' Pedestrian scaled street lighting and ~ ~''~ . `~; ~. boulevard trees will provide separation `~, ~ from the street. .-`P~,~t ommerc~a~ street section +~.~~_ rF ,.E ~ 1T13C. QV@nU@ Focused Area STudy 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. 3.. _ si f~ t. ice::.. ... r '~ Commercial Streets Res~~ent~a~ section THE MASTER PLAN 0 ffice & Industrial Streets Streets through office and industrial districts are wider to accommodate truck traffic and include parallel parking, turf boulevards, sidewalks, street lights and boulevard trees. Trails Trails support two equally important functions within the FAST, the first for recreational use and the second to support bicycle commuting to the Northstar station. The plan calls for trails along the extension of Twin Lakes Parkway, trail connections to surrounding city parks, and trails along edges of natural open space amenities. Trails are also envisioned to connect across Highway ~o~i6g to the Mississippi River creating linkages to Historic Downtown and to the Kelley Farm. Trails provide a recreational and commuting function in the FAST T/'ISC. QV@f1U@ Focused Area STudy oFF~ce/inoustr~a~ street section THE MASTER PLAN ~, .r GREEN INFRASTRUCTURE: The 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 z5% of the land area in the wetlands, 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 in the Northern Heights district 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 io~i6g are important to signify the FAST project area. Key development and site designs reflective of the natural setting of Elk River should be considered. Internally, the large wetlands afFord sweeping views of the natural landscape and development should take advantage of these assets. Stormwater Treatment The master plan encourages the stormwater infrastructure features such as stormwater ponds, infiltration basins and bioswales 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 Office Village districts Urban Forest The master plan encourages the preservation of existing vegetation and establishing a strong canopy of urban street trees throughtout the FAST. treatment as an amenity 'IT'18C. QV2f1U@ FocusedArea STudy The natural systems are highly visible and contribute to [he scenic character o f the site. Wetlands occupy z5% o f the land area Connections to nearby parks are important green ~nFrastructure ~~a~ram ~ ~ ~ __ p~ r Trott~Brook - r+ ~ I ~~, ~y~ Farms Park \ ~` ~~~ ~ \'~iI ~~~~ 1 >~~~ ~ Illy. ~f ~~(::.;: i t, a+• <<: V ~~ Legend: _ _ City Park ~;.: Preserved Open Space °_ • Non-City Recreation ~`' ~ Facilities I ~ PateMlal Park Expanslen t-- . _ ~~ E>tlstingTraila/Sidewalks ~~: ~' Vicwsheds .... BukerZones ~) Tree Preservation Wetlands/Stamwater Figure 6.7: Green Infrastructure Diagram I Kelley Farm THE MASTER PLAN ~--` . ~ '1'nnn'~„'"t•' - - { l ~ Y/ " ~ ~tl k 13~ ~ t = ~ ` ,,4 ~ y .r. .x ~] ± '--- - --~ Northstar CUnulruter Rail station "°-4 x ~. :~.~. '`~~ ~ ran ~~ • i•~ l ~ ~~~: ~, '~.~ fHE MASTER PLA ~~ t ~~yy~_ Y¢ =- ~.. i' n,~r~ be needed in the future to accomodate increased demand for the Northstar commuter rail. rail crossing should be considered at Avenue TRANSIT SYSTEM Northstar Commuter Rail Station The Northstar commuter rail is seen as a plus for growth in the district, 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 70o 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. Rail Line The master plan suggests providing an additional crossing of the BNSF rail line near 73rd 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 trafFic 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. The opportunity for a rail spur off of a major freight rail corridor could be significant for industrial uses in the FAST. The master plan suggests a parallel spur line to serve the industrial uses surrounding the RDF plant. Tl'13t. QV@r1U2 Focused Area STudy 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 IMPACT ANALYSIS: The needs for public infrastructure for the proposed development and redevelopment have been preliminary studied for the i7ist Avenue FAST. The need address roadway capacity through traffic analysis and the sanitary sewer and municipal water capacity to serve the projected development levels for the area. City staff will be providing an update on the following topics at the 4.z7 joint meeting and that information will be incorporated into the final report. Roadway Capacity & Tra fjic Analysis In f rastructure capacity Sanitary sewer Municipal water THE MASTER PLAN ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ i ,~ ~ ,*" ~ ~ ~ ~ ~ ,~ ~- ~ ~ ~ ~ i imP~emencac~on Implementing the master plan for the i7~st Avenue FAST is not a single step. Achieving the vision established in this plan involves a series of interrelated actions spanning a - -- _ -- number ofyears. The vision may have to adjust reflecting changes in market dynamics, -- _ ,, land ownership, community goals, economic prospects, or consumer preference, yet at the same time it is important to protect the vision against short-term opportunities that undermine the long term vision. With good planning, consistent policy implementation, and adherence to the vision, development will eventually reach the critical mass that leads to success. This chapter provides a guide for actions and investments required to implement the master plan and realize the vision for the ~7ist Avenue FAST. ^ ^ IMPLEMENTATION KEYS TO IMPLEMENTATION Several factors will be crucial in successfully realizing the vision set forth by the community and the EDA within this master plan. These keys apply regardless of the actual form and timing of redevelopment: » Patients & Commitment. Commitment to the plan and patience gohand-in-hand. This plan does more than simply seek to attract new development to southeast Elk River; it seeks to move the area toward a vision for the future. Commitment to the plan means the willingness to actively promote public and private investments that achieve the vision, and to deter developments that do not meet the objectives o f the plan. Not all o f these decisions will be easy. Strategic Investments. I f financial support for the plan was unlimited, the need for strategic decisions would be less important. With limited f unds, every expenditure is crucial. It is not possible to immediately undertake all o f the initiatives described in this plan. Needs and opportunities not contemplated in the plan may arise in the future. Every investment must be evaluated for its impact on achieving the vision for the future of the ~7ist Avenue FAST. Public & Private Partnerships. Removal o f the physical and economic barriers to development and redevelopment for the ~7~st Avenue FAST may require public finance assistance. The complexity o f development and redevelopment envisioned for the area clearly demonstrates the need for public financial participation. Private investment will not be su f ficient to pay for all costs associated with redevelopment. Astrong public/private partnership is required to make development and redevelopment financially feasible and promote the desired development. The need established in this plan does not make public financial assistance an entitlement, and on-going planning will de f ine and substantiate the nature o f assistance for each step o f implementation. This approach ensures that public monies are used to achieve desired public outcomes and not simply make development more a f fordable (or pro fitable) for the developer. Financial Planning. The ability to make strategic investments relies on the continued evolution of financia- planning. Implementing the plan cannot be viewed as a series o f independent projects but rather a series o f interrelated actions. Some public improvements serve a broader area and not a single project. Revenues will come from multiple projects. Some public investments will be required prior to private redevelopment. The ability to coordinate public actions with the revenues f rom private development will be key to the success o f the plan. Failure to consider the implementation relationships between elements o f the plan will lead to missed opportunities and increased risk for the City. ROLES & RESPONSIBILITIES Implementing this plan will rest with many entities in the community that share a vision for the future for the ~7ist Avenue FAST. A clear understanding of implementation roles and responsibilities promotes the effective use of limited resources. Community at Large The community of Elk River must stay involved as the development of the FAST area continues over time. The community must work together with decision makers and provide the necessary imput for any new development to respect existing land-owners and meet the vision of the i7ist Avenue FAST. » Provide a singular focus for the plan. The knowledge gained from the planning process will allow members o f the community to efficient) y and e ffectively comment on development and redevelopment proposals. » Continue public involvement. Open House comments and review o f development proposals. Economic Development Authority (EDA) The ~7ist Avenue FAST is important location for economic development in the City of Elk River. It is the EDA that will keep the momentum of development and redevelopment moving in a direction envisioned by the plan and adopted by the City. Several EDA actions make them an important player in the successful implementation of the plan: » Provide a f ramework for coordinating e f forts o f the community. With limited resources, it is essential that the community work in unison to undertake redevelopment. The knowledge and experience gained f rom the planning process allows EDA members to e f ficiently and e f f ectively take steps needed to implement the plan. » Work to ensure that development and redevelopment initiatives in i7ist Avenue FAST are a recognized priority for City Council members representing the area. » Take on a more active role than in the past. Actively perusing critical properties for redevelopment or utilizing land leasing opportunities for near term investments could be new roles for the EDA. » Create an annual redevelopment "action plan" to monitor progress toward implementation. This action plan would outline key steps to occur during the year, including descriptions o f actions, responsible parties and funding. It forces the parties to not only consider what needs to be done in the coming year, but also why identi fled steps were not taken in the prior year. » Work with property owners to promote the maintenance and revitalization o f existing buildings. » Provide guidance to the City to ensure that proposed development projects and public improvements are consistent with the plan. » Promote development projects with sustainable design practices. » Work to find the appropriate funding options for developent and redevelopment. City o f Efk River The ultimate responsibility for implementing the plan rests with the City of Elk River. The Planning Commission and the City Council will provide direction on staff resources, development project review and public investment. Managing development and redevelopment for the ~7ist Avenue FAST will primarily fall to the Planning and IMPLEMENTATION IMPLEMENTATION Engineering Departments of the city. The lead role in managing implementation for the City falls to the Planning Department. The actions to be taken by the Planning Department to implement the plan include: Application o f land use controls to guide private development. Review o f development plans and proposals. Coordination o f planning for capital improvements needed to facilitate redevelopment. Creation o f plans to finance for public redevelopment investments. The Engineering Department leads the design of public infrastructure improvements needed to support development and redevelopment for the ~7ist Avenue FAST. The Engineering Department is a key player in planning for future roadway and transportation improvements, including on-going conversations with MN DOT on regional highway improvement projects affecting the project area. The Park and Recreation Board is responsible for planning, building and maintaining parks and trails through the project area. LAND USE CONTROLS The initial focus of implementation will be on actions needed to establish the master plan as the official guide for development for the ~7~st Avenue FAST. These procedural steps in implementation involve the adoption of key policy documents and updated development controls. Approve the Master Plan The first implementation step is City Council action to approve this master plan. City Council approval sets the stage for subsequent actions. The master plan is used to inform subsequent planning efforts such as comprehensive plans, zoning and allocation of resources. Amend Land Use Controls Plan approval is the trigger for taking other actions needed to guide land use for the i7ist Avenue FAST in accordance with this master plan. Land use controls not only promote the desired development outcomes, they also prevent development that is not consistent with the plan. Comprehensive Plan Step one is to update the City's Comprehensive Plan with the new "Future Development Framework Plan", Figure 6.i and the new land use plan designations consistent with the vision of this master plan. Amending the Comprehensive Plan creates the foundation for all other implementation actions. Consistency with the Comprehensive Plan is a statutory requirement for zoning regulations, capital improvements and redevelopment projects. Zoning Regulations More direct control of development comes from zoning regulations. Existing regulations will require modification to conform to this plan. Part of the necessary modification is enabling, allowing the type and form of development proposed in this master plan. Other regulation changes are restrictive, forming a barrier for private investment that is inconsistent with the plan. Zoning changes are likely needed in order to implement the Land Use Plan. Detailed analysis and formal recommendation of any zoning changes will be handled by the City of Elk River along with adoption of this master plan. Design Guidelines Design guidelines serve as a communication tool between the EDA, the City, property owners and developers. Aspects of the design guidelines could be incorporated into a pedestrian overlay zoning district for portions of the FAST. Design guidelines should become a standard tool in evaluating proposed development. Design guidelines should be rooted in the district vignette studies established in the master plan chapter of this document. IMPLEMENTATION IMPLEMENTATIOP STRATEGIES FOR DEVELOPMENT & REDEVELOPMENT Implementation of the master plan is not a single action, but a series of steps. These steps will be taken over time in phases. Initial focus should be on several implementation initiatives that lay the foundation for change. Initally, public investments such as street and infrastructure improvements will play a key role in setting the table for private development to occur in the FAST. Part of this strategy becomes the effective use of finance tools available to the City. Phasing To act as a basis for analyzing implementation issues and to focus in on first steps needed to begin development and redevelopment, a phasing plan has been created (see Figure 7.~). The phasing plan builds from other known investments and responds to site readiness. It is anticipated that full development of the i7~st Avenue FAST will take roughly z5 years to accomplish assuming a return to a relatively stable & growing real estate marketplace. The phasing plan suggests two general phases marked by the transition of Highway ~o~i6g to a limited access freeway, and remaining areas suggested as retain~infill areas. Earlier Phases There are two districts suggested for earlier phase development totaling roughly 57 acres. They are the East Elk River Gateway District and the Hinge District. Development here possess the most financial and market feasibility. However, development in these areas must follow the new infrastructure investments which will establish the framework for future development. Later Phase The later phases of evelolution will likely occur with the transition of Highway io~~6g to a freeway and as ridership builds on the commuter rail line. Before these areas "ripen" for redevelopment, they will need to respond to the shift in transportation patterns and build on the financial infusion of earlier phase projects. Retain / In fill: There are three areas of the FAST labeled in the phasing plan as "retain~infill". These areas are not suggested for active pursuit of redevelopment because of the quality of development. These areas include the Northstar Business Park, Elk River Station and the small pocket of single family housing around Kleivers Marsh. These areas of infill are independent of the phasing schedule. IMPLEMENTATION PF~ .~ ~~ e ~ ~t ~,G,~ A~ ~~ ~- --~s, / ~~. '~ ~ -! ~ D .~ ~`~e~i ~ o yr~r y'~ 1'G' ~ ~~+yµ rci t,~,/ \ 1 O ~ ~ -tt. \ ^w'w.' `~ • Ott ., ~S.«.. ` i~ ~ ~ e ~ `; ~4 ~ ~~ j~t , ~ ~~ ,~ ~, w '~ ~ ` . ~ ~ _. r ~ tr.., ,. s . t ~ i a ti, ~ .,, ~~ 1 i _ .~ i a' - - - t ~Y - .. _ S 1 I ' ~t 5 ~ v - ~ tie, "~" r '~ - 3° ~ n ', \ i ~ ~~ ~ , . ' ~ -F ~ b ~. ~ i ~ -, ~I .. +~ 1 ~~~~ ~' o ~. }~ ~I ,~ 7 i ! __ ~ _ `_ } t ~~' '~ ~ •_~ r. , F i ,' I ._4 N.r. .yr r a. f ~t ~ J~~. tb e~ ( , ~ ~~ ~~lr IZLT), j2; _ s ~ ~ 1~ . ~ ~., ~ s F ~i1-~.ttY burr.: '~~ ~ ~ ! _ ~. _.-.. EARLIER PHASE ? -"~ 'u l-~1 ,i :.~,~.-~' Z .!~-'-l ~~~~, LATER PHASE ij j ~ ~`` i~ '~ ~ i ~ :.,...': `~~ ~"" . .. .. ,. .~ a ~ .. ~_ .._ RETAIN / INFILL ,~ "i ~ ~ ~ z ,. a ~~~~ ! ~ t /, ,. ~, s~ ~. ____ GATEWAY PROPERTY '" ~~ ~~,' ,~ !- ~ ~., ~~ NORTHSTAR STATION `; {1~~ ~'~ -'x,`' '\ \,~ ~\4 ~' v+`~ e r ~ _ PLANNED INTERCHANGE ~ - ~ ~' ~: `" ~ ~ ~,. A .,~ ~ 4 \._~ t "~~~®II ~„- - -- ~'+t 0 701" 100' 1300' Figure 7.~: Phasing Diagram _ 171St. QVef1U2 Focused Area STudv IMPLEMENTATION Implementation Initiatives Implementation of the master plan for the i7ist Avenue FAST will span many years and include many complex activities. It will likely be more than twenty-five years before the vision for the FAST is fully realized. There are, however, many actions to betaken in the near term -the next one to ten years. These actions (identified in Figure 7.~) are critical to development success for the FAST. The initial focus of implementation will be on actions needed to establish the master plan as the official guide for development for the i7ist Avenue FAST. The first implementation step is City Council adoption of the master plan. City Council approval sets the stage for all subsequent public actions and the confidence needed for private redevelopment activities. During the early years of the FAST development, there are several critical actions that can be taken to reduce development constraints, allow for greater investment in public amenities and enhance the creation of a sustainable neighborhood. Pre-interchange development can be used to set the stage for the post-interchange development with enhanced financial opportunities. Suggested activities to enhance project success include: » Strategically stage development so that it builds market momentum and early projects act as positive demonstrations o f great things to come in the FAST. » Build high-quality streetscapes, natural areas and pedestrian links because these amenities will drive future market interest. » Create convenient, sa fe linkages between various trail routes for bike commuting. Key phase i activities identified in Figure 7.i are further described below. Twin Lakes Parkway & ~7~st Avenue Congruent with the East Elk River Gateway District and Hinge District Development, the construction of Twin Lakes Parkway will begin to establish future transportation patterns for the FAST. The re-alignment of the intersection at i7ist Avenue and the extended Twin Lakes Parkway and construction of the round-a-bout will highlight the broad changes awaiting the area, and access control through median placement and parcel access will lay the foundation for development. Enhanced streetscape for i7ist Avenue to the signal at Highway io~i69 and along Twin Lakes Parkway will attract new development to district. Additionally, an opportunity exists to create a signal at the prposed interchange location, replacing the existing at grade intersection at 65th Avenue. This new signal and intersection would allow for more near-term development in the East Elk River Gateway District. Official mapping of Twin Lakes Parkway should also be considered. Offical mapping is an offical platting process to secure right-of-way for future roadway improvements. The roadway is platted with the county and will be transferred to the city at the time of development East Elk River Gateway The city-owned Gateway land is green field land offers the greatest opportunity for early development in the FAST. Significant investment will be need for utilities and roadway infrastructure. Adevelopment goal will be to creating enough development intensity required to generate financial resources to assist in achieving the vision here in other parts of the FAST. Other districts will involve challenging but necessary acquisition and demolition, as well as infrastructure and amenity investments. The East Elk River Gateway District development will establish the future development pattern and character for the i7ist Avenue FAST. The Hinge District The Hinge District is the likely location for commercial and retail uses to development in the immediate future. Establishing an internal roadway network through the will facilitate the proper traffic circulation between extended Twin Lakes Parkway and i7ist Avenue. The design of development will set the tone for the future and will include streetscape, trails and wetland mitigation. FINANCING A detailed financial analysis was not performed as part of the planning process. There area many financial variables involved with complex development planning projects. The following information highlights the key tools currently available to finance implementation of the master plan. Tax Increment Financing The costs of development and redevelopment may be too great to allow new projects to be financially feasible. The situation poses the classic "but for" situation in State law governing tax increment financing. "But for" the use of TIF, the development as proposed would not occur. It is clear that the desired redevelopment will not take place without the removal of physical and economic barriers by the City. Tax increment financing is the only tool with the capacity to accomplish these objectives. As with other elements of the master plan, projections for the use of TIF are both comprehensive and conservative. The plan seeks to provide a clear understanding of what might be required with the goal of reducing public financial commitments as the plan is implemented. The result can be found in other large redevelopment settings. As redevelopment begins to transform an area, market forces improve. As the potential income from rents and sales grow, private development can carry more costs of redevelopment. This master plan assumes that all of the redevelopment projects will be included in TIF districts. In simplest terms, TIF allows the City to capture the property taxes from redevelopment and use these monies to pay for the investments required to undertake the development. Financial analysis conducted through the planning process clearly shows that private development will not alone support the investments required for IMPLEMENTATION MPLEMENTATION implementing the master plan. The costs of desired development and redevelopment are likely too great to consider all new projects to be financially feasible. This plan does not offer a primer on the use of TIF since the City is familiar with the intricacies of TIF from its use on other redevelopment projects. Instead, implementation of the plan requires attention to the key issues that influence the use of TIF: Project Area: TIF relies on two types of areas. The "project area" is a broader area with common development goals. The "tax increment financing district" is the specific parcels from which tax increment is collected. The project area is important because it defines where tax increments can be used (see discussion of "Pooling" that follows). The project area defined for this master plan should also be designated as the project area for the purpose of establishing TIF districts. District Criteria: The plan assumes that the TIF districts in the i7ist Avenue FAST will be classified as "redevelopment" under state law. The establishment of a redevelopment TIF district relies on three basic criteria (Minnesota Statutes Section 46g.~74, Subd. io): t Parcels consisting o f 70% o f the area o f the TIF district are occupied by buildings, streets, utilities, or other improvements. z. More than 50% o f the buildings, not including outbuildings, are structurally substandard to a degree requiring substantial renovation or clearance. 3. These conditions are reasonably distributed throughout the district. The presence of improved parcels should not pose a constraint. The majority of the redevelopment sites in the FAST include properties that meet these criteria. The existence and distribution of structurally substandard buildings has not been studied. The inspection of buildings and the related analysis of identified deficiencies are typically used to determine the ability to meet these statutory criteria. This work is not included in the current master planning process for the i7~st Avenue FAST. The City should immediately undertake an analysis of buildings in the "Phase i" portion of the project area. This information is essential to decision making about the use of TIF. There is little doubt that some buildings in the project area will be found structurally substandard. The location of these buildings will influence the configuration ofTIF districts. The analysis should include all parcels in the project area where redevelopment is desired. Conducting this analysis removes one step needed to undertake redevelopment. The City can offer potential developers certainty about the ability to create TIF districts. Pooling: Some aspects of the redevelopment plan may be financially feasible (estimated revenues exceed expenditures) while some projects must close a financial gap before they occur. Ideally, projects that produce financial surpluses should be used to support those with gaps. This distribution of financial recourses can occur if the projects are located within the same TIF district. If not, then State law limits the flow of funds between TIF districts. The need to carefully plan the boundaries of the project area and TIF districts is tied to the issue of pooling. The term refers to the statutory limitation on spending tax increment beyond the boundaries of the TIF district. Items to be funded by TIF must be located within the TIF district or be an amount that falls within pooling limits. For redevelopment TIF districts, not more than i5% of tax increment may be spent outside of the district. The actual application of pooling limits is often more restrictive. Administrative expenses of the TIF district count against the z5% maximum. The amount of revenue available to support eligible costs outside of the district may fall in the ~5% to zo% range. Time Constraints: In a perfect world, the City would establish a TIF district and wait for redevelopment. Current State law makes this approach a risky proposition. TIF districts are subject to several time limitations. The most important of these limitations is the five-year rule. After five years from the date of certification of the TIF district, the use of tax increment is subject to new restrictions. Generally, tax increment can only be used to satisfy existing debt and contractual obligations after this date. This rule creates a five year window to make commitments for the use of TIF. Additionally, the geographic area of the TIF district can be reduced, but not enlarged, after five years from the date of certification. Therefore, if a TIF district is established without a specific plan for development, there should be reasonable certainty that development will occur within five years. The City has the ability to decertify all or part of a district and create a new one. This action sets a new five year clock. There is a risk that the conditions used to establish the original district will not be present in the future. IMPLEMENTATION IMPLEMENTATION Use Limits Several specific statutory limitations will influence the use of tax increments on implementation of the plan. State law requires that at least 90% of revenues from a redevelopment TIF district be used to finance "the cost of correcting conditions that allow designation" of the district. The majority of redevelopment and public improvement expenditures in this plan meet this criteria. Several important limitations must be noted: » Tax increments cannot be used for "a commons area used as a public park". The plan takes a conservative position and assumes that this limitation precludes using TIF for proposed open space improvements. The statute does not de fine the term "public park". The City may wish to explore this issue with appropriate legal counsel. » Tax increments cannot be used f or public facilities used for "social, recreational, or con f erence" purposes. As with parks, the statute does not de fine these terms. Special rules apply to public improvements, equipment, or other items located outside o f the TIF district. Tax increments cannot be used f or these costs i f their purpose is primarily decorative or aesthetic. I f the items serve a f unctional purpose, tax increments can be used unless "their cost is increased by more than goo percent as a result o f the selection o f materials, design, or type as compared with more commonly used materials, designs, or types forsimilar improvements, equipment or items". To avoid this restriction, the right-of-way o f street to be improved should be included within the boundaries o f a TIF district. Other Public Finance Tools Although the planning process focused on tax increment financing, it is likely that other public finance tools will be needed to make long term redevelopment investments within the i7ist Avenue FAST. This section highlights potential tools and their application. Additional investigations will be undertaken as finance plans are prepared by specific public improvement and redevelopment projects. Tax Abatement The name "tax abatement" is misleading. No taxes are abated using this tool. In reality, tax abatement functions similar to TIF (see Minnesota Statutes Sections 46g.i8iz to 46g.i8i5). Each taxing jurisdiction (city, county, school district) has the ability to levy a property tax equivalent to taxes paid by a parcel of property. The proceeds of this levy can be used to finance any of the public improvements and other redevelopment activities discussed in this plan. Since tax abatement cannot be used for property in a TIF district, the best opportunity for this tool lies with locations that do not qualify for a TIF district. Special Service Districts A special service district has the capacity to finance the construction and maintenance of the public improvements for the ~7~st Avenue FAST. In simplest terms, a special service district is a special taxing district. It allows the City to collect money to support services and improvements in commercial areas. The general statutory authority (Minnesota Statutes, Chapter 4z8A) contains few limits on the potential uses of special service districts. The nature of the improvements that can be funded with a special service district are not defined (or limited) by statute. The special service district cannot be used to finance services that the City provides through the general fund throughout Elk River, unless the services are provided at a higher level. The statute does not impose any other limitation on the nature of services. Potential applications of special service districts for implementation of this master plan include: » Construction and maintenance o f streetscape. » Construction and maintenance of the wetland trails and other public open space. » Construction of sidewalks, trails, bridges and other improvements to enhance pedestrian movement. » Construction and maintenance o f public parking facilities. » Other services and improvements can be undertaken and financed by a special service district i f authorized by the enabling ordinance. Grants DEED The Minnesota Department of Employment and Economic Development (DEED) offers grants, loans and technical assistance for redevelopment projects and activities for communities. Qualifying projects include housing and commercial rehabilitation, wastewater treatment facilities and drinking water systems, and contaminated site clean-up. Eligibility of financing through DEED depends on a number of factors including the type of business, size, location and type of financing needed. The Business Development Public Infrastructure Program is a potential grant through DEED which provides funding for infrastructure projects in support of economic development. This program would be a great fit for the infrastructure improvements for Twin Lakes Parkway. The DEED web- site (http:J/www.deed.state.mn.us) provides a number of potential financial resources for development and redevelopment projects in the FAST area to spur business growth. IMPLEMENTATION IMPLEMENTATION M PCA The Minnesota Pollution Control Agency has various opportunities available for receiving grants and other financial assistance for environmental projects in Minnesota. Environmental Assistance (EA) Grant The Minnesota Legislature established the EA grant program to provide financial assistance for the development of environmentally sustainable practices in Minnesota through voluntary partnerships and goal-oriented, economically driven approaches to pollution prevention and resource conservation. The Environmental Assistance Grant Program consists of a competitive, two-stage application process used to identify and assist projects that will be most beneficial in furthering the Agency's mission of working with Minnesotans to protect, conserve, and improve our environment and enhance our quality of life, particularly within the focus areas identified each fiscal year. Small Business Environmental Loan Program This program could be an option for business within the FAST. It provides low-interest loans to small businesses to finance environmental projects such as capital equipment upgrades that meet or exceed environmental regulations, and costs associated with the investigation and cleanup of contaminated sites. These loans help small businesses help themselves with environmental projects. Through the program, small businesses are able to achieve successes with their environmental projects and goals, while at the same time helping to preserve Minnesota's air, land, lakes and quality of life. Housing Improvement Area A housing improvement area is very similar to a special service district. This type of taxing district can finance improvements toareas ofowner-occupied housing. At this point, the statute does not allow use for rental housing. A mixed-use development requires a "layered" approach, using both special service district and housing improvement area. Park Dedication State law governing subdivision regulations (Minnesota Statutes, Section 462.35$) authorizes the City to require that a reasonable portion of the property be dedicated to the public or preserved for conservation purposes or for public use as parks and recreational facilities. The City may also elect to receive payment in lieu of dedication. This tool could be used to acquire the additional land needed for parks, trails and open space for the 171st Avenue FAST. .,-~ a ~ > ~. ~, 17130. CN@nU2 Focused Area STudy IMPLEMENTATION 1713C. W2f1U2 Focused Area STudy •~. -. . ~9 'wa ~ " ~- '~ a ' ~ ~ , ~, '~ ~ i s~ ~~`' "~.` s ~ ~ _ ,,~ ~ ~ aPPen~~c r.~~~ ~~~ ~. ~~ IM '~h Rs4m uea.+7e,ary Ntvk•M Pns Lpn 3{aor veoa.5waral swn u "~"' ^~y ~.= R %'t'"f ,r ~Ra~Ildi sTU+~bILC,~R,~ ~a j46~,~vga ,~i~710R~i' ~rt5~` a >~T4. "Y ~ i~- H d o • : s r ,tLY -4~t a,.Jx s H >,i"'~ tea? ¢r'~~ab ~~'ai~'~`~~#. aeaY* mas ra `hfi y g. t~# #a~be~1p ~ , faJ, k8 ii3aeo$$ i +~tRrY~srr !t. fWt~ bfsO°~ iic 1 ~ t } I~R, s1 ~uM , ~ IL ie~1 Is= s a € i 4 .~fffi'i+-1i ~ala14+ '~la c7r°f'd'a het :_s'= ommenls: Comments: Czntral location of interehenge good f r es Lsting & future bucinzcses. Interchanges too far apart liir business Poor Flaw out ro Highway 10. Highway 10 should remain convnerci: Nice t» keep housing within walking distance of [hz sratinn. 171st Avenue & Twin Lakes lentrance to tranvt stations nezdc stop light id pedestrian crossing..4l ready this Is a prnblzm durine peak trnfric APPENDIX Hoisington Koegler Group Inc. ©© ©~ Meeting Date: March 25, 2009, 2:00 - 3:30 p.m., Elk River City Hall Client: City of Elk River, Minnesota Project: Elk River Focused Area Study (FAST) Purpose: MNDOT Review of potential interchange location for FAST Study Present: Craig Robinson, MN/DOT; Bryan Harjes, HKGi; Jeremy Barnhart & Terry Maurer, City of Elk River. The meeting was held to review future interchange locations and gather input from MNDOT representatives on general location, future timeframe and potential funding sources for the future interchange. The meeting opened with an overview of the broader transportation and land use issues surrounding the Elk River FAST. The following are the summary of comments from the meeting. Comments related to the future interchange: • Location of a future interchange should be located 1 mile south from the centerline of the Highway 101 and Highways 10/169 interchange. Additionally, the further north the interchange would like increase the complexity of construction for the 101 and 10/169 interchange. In general, the further the interchange is located from the 101 & 10/169 interchange there is a strong likelihood the project costs would decrease due to less acquisition costs and design complexity. • MNDOT had no preference to an interchange either 1 mile south of Highway 101 and Highways 10/169 interchange or further south near the location identified in the IRC around 165` Avenue. • The city should build a case for a future interchange though: o Further study geometries /environmental review o Acquisition of necessary properties or needed right-of--way o Working toward controlled access points at 171'` and 165` Avenues only, while closing all other access points through the corridor • The cost of an interchange would be split between MNDOT and the city 50%-50%. However, the percentage breakdown for the interchange cost could reach 85% MNDOT and 15% City if the city meets certain performance review checklist items. For example, if the interchange is located on an underperforming Inter Regional Corridor (IRC) there is a 10% cost savings for the City. Also, MNDOT currently has no funding for even the 50% portion of the interchange. • MNDOT provided information on the Greater Minnesota Interchange Solicitation Program which has an allotment of 40 million dollars for infrastructure improvements for out-state Minnesota. However, only 10 million is the maximum award for a single project. MNDOT provided the checklist for project submittals with evaluation categories ranging from economic development, safety and congestion relief. The submittal packet has a due date of June 12"', 2009 with a general start time of 2013. Additional comments: • Ametro-district resurfacing project will take place in 2012. This project will include a mill and overlay of Highway 1.0/169 and will also included closure of median crossings except for 171st Avenue and 165`f' Avenue. Right-in and right-out access points would still remain as closure of these access points involves property rights issues. • Near term, MNDOT showed some reluctance for an additional signal at 165' Avenue, however would 1,__. A consider a proposal for a signal at 165`x' Avenue that included access closures to enhance safety measures through the corridor. ~_.: -~~ ~..° 1718C. QV2r1U2 Focused Area Srudy APPENDIX Elk River FAST MNDOT Interchange Review Meeting March 30, 2009 Page 2 of 2 The current Highway 10/169 IRC shows an additional interchange at Highway 10/169 and Jarvis Street at the very southeastern boundary of Elk River. The potential future interchange may have to be a single point design due to traffic vohunes, but further study will be needed. A single point design would typically add costs beyond a standard interchange design. M~IELKRIVERI08-65Fnca~sAreaStucw(FAS7~13MeetingslMNDOTInterchcrngereview•meetittg 090325.c1oc APPENDIX