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HomeMy WebLinkAbout09/27/2005 P&Z Packet• • CITY OF LINO LAKES PLANNING & ZONING BOARD MEETING Wednesday, September 27, 2005 6:30 p.m. City Council Chambers (scheduled to be televised on Ch. 16) AGENDA I. CALL TO ORDER AND ROLL CALL II. APPROVAL OF AGENDA III. APPROVAL OF MINUTES: Sept. 14 minutes postponed to Oct. 12 Meeting IV. OPEN MIKE V. ACTION ITEMS A. CONTINUED PUBLIC HEARING for Comprehensive Plan Amendment for Village of Hardwood Creek — Jeff Smyser VI. DISCUSSION ITEMS A. None VII. ADJOURN AGENDA ITEM V. A STAFF ORIGINATOR: Jeff Smyser P & Z MEETING DATE: September 27, 2005 TOPIC: •CONTINUED PUBLIC HEARING: Comprehensive Plan Amendment Village of Hardwood Creek •General Concept Plan, Planned Unit Development BACKGROUND We have received an application from Village of Hardwood Creek, LLC, to amend the comprehensive plan. A public hearing is required for a comprehensive plan amendment. A comprehensive plan amendment requires a formal vote. The application also includes a general concept plan for a planned unit development. The concept plan review is informal and does not require a vote. It is important to note that approval of this comprehensive plan amendment does not grant or imply any right to an approval of the PUD application that will follow. The growth management policy, laid out in Ordinance No. 24 -04, was prepared to implement the intent of the comprehensive plan. The growth management policy requires that several issues be addressed if the City is to accommodate this application. This project application is the first one that requires an amendment to the comprehensive plan as directed by the growth management ordinance. Review of the relevant parts of the comprehensive plan resulted in recommendations to add or change several passages. The amendment to the comprehensive plan would involve a number of elements. This application does not include a planned unit development or preliminary plat. It does not include the detailed information normally part of such applications. Because of this, we cannot analyze the project to see if it would qualify for the exemptions to certain growth management limits as a conservation development. In additions, there are some limits from which we cannot grant exemptions. Therefore, a comprehensive plan amendment is needed to address growth issues as well as changing the land use designation for the site. Basically, three parts of the plan amendment relate directly to the application: changing the land use, adding MUSA, and addressing the growth management issues. Because the comprehensive plan is a city -wide document, we need to ensure that amendments to the document support future planning needs. Comprehensive Plan Amendment Village of Hardwood Creek page 3 has a MUSA reserve. As part of the approval of the comprehensive plan in 2002, the City received additional MUSA reserve acres from the Metropolitan Council. The amount of MUSA reserve was based on the City's estimates of the need for residential and commercial /industrial development. There are only 90 acres remaining in reserve for Stage 1 (pre -2010) residential development and 68.5 acres for commercial /industrial development. The development project site requires 363 acres of additional MUSA. The rectangular exception is about 7 acres, for a total of 370 acres. A request for 370 acres of new MUSA would be part of the amendment submitted to Metropolitan Council for review. Under state statute, every municipality in the Metropolitan Area must have a comprehensive plan, and must submit amendments to the Metropolitan Council for review. The Met Council compares the city's plan to the regional Development Framework, which includes plans for the individual systems over which the Met Council has jurisdiction. These include sanitary sewer treatment, regional open space, transportation, and airports. Control over MUSA is how the Met Council ensures its sewer treatment facility planning is not overburdened or underutilized. Underutilization is wasted capital improvement, and thus poor use of public funds. Growth Management, Number of Units: The growth policy establishes a target for the number of dwelling units that can be platted each year: 147. This works out to a total of 1029 units between 2003 and 2010 (147 x 7 years = 1029). There are 76 units available for year 2007, 147 for 2008, and 147 for 2009. The proposed development area is intended to accommodate 1200 to 1250 dwelling units over six years. This would exceed the 1029 total and the 147 per year. COMPREHENSIVE PLAN AMENDMENTS The following lists the reasons why a comprehensive plan amendment would be needed: (1) The proposed land use plan map must be amended if the application is to be approved. The current designations are Industrial, Medium- Density, and High - Density Residential. This would be changed to guide the entire site for Mixed Use. (2) The amendment must include a request for 370 acres of MUSA for the Stage 1 growth area. (3) In addition, even though our comprehensive plan includes Mixed Use on the proposed land use map, there is no description of this land use category in the text of the document. This should be addressed by describing the intent of the Mixed Use category. • Comprehensive Plan Amendment Village of Hardwood Creek page 4 (4) The growth management ordinance states that an amendment of the comprehensive plan shall be required if, in order to accommodate a specific development project, the annual target for new growth (units /year) would be exceeded (Section 2, 7.). It is unlikely that the master plan for this development could proceed within the limits of the target of 147 units per year. (The 1029 units for Stage 1 noted in Section 2, paragraph 5 of the growth policy, is based on 147 x 7 years.) (5) The comprehensive plan itself includes a list of Growth Management Policies, which includes "Limit residential growth to an average of 147 units per year, carrying a three year supply lot inventory" (page 27). As stated above, this would not accommodate the anticipated development project. This statement should be reviewed to accommodate the potential advantages of master planning large areas. (6) The growth goals described in the comprehensive plan "assume an average of 147 new households annually through the year 2020" (page 63). This statement merits discussion. (1) & (2) Land Use Plan Amendment: Land Uses and MUSA The comprehensive plan includes a "Proposed Land Use" map. The application includes amending that map. Currently, the site includes land guided Industrial (290 acres), Medium Density Residential (45 acres), and High Density Residential (25 acres). The AUAR included a market analysis based on recent development rates in Lino Lakes. There are 1072 acres guided for industrial uses along 35E. At historic rates, it would take well over 100 years to develop all this industrial land. Converting some of this to accommodate the commercial and residential development that would make up the Village of Hardwood Creek project will not prevent industrial growth in the city. • The proposed land use for the site should be changed to Mixed Use, as shown on the attached map "Proposed Amendment To Land Use Plan (Detail) ". • The amendment should include a request for 370 acres of MUSA for this project. The resulting MUSA line is shown on the "Proposed Amendment" map. (3) & (4) Text Amendment: "Mixed Use" Land Use Category and Addressing the Growth Management Ordinance The comprehensive plan Proposed Land Use Map includes twelve land use categories. The text in the Land Use Plan chapter of the document include discussion of nine of the categories. The three categories not discussed are Public /Semi - Public, Manufactured Home Park, and Mixed Use. The 35W interchange area of the Legacy at Woods Edge and the Marketplace developments are the largest areas guided Mixed Use. The other is • Comprehensive Plan Amendment Village of Hardwood Creek page 5 the area northwest of the Hodgson/CR J intersection. The Mixed Use category should be described in the text of the comprehensive plan, this project site should be listed, and it should be clear that the growth management policy requirement has been addressed. • The following text be added to the comprehensive plan, at the end of the Land Use Plan chapter, on page 97: MIXED USE The Proposed Land Use Map designates several areas for "Mixed Use ". The Mixed Use designation is intended to accommodate development that includes a variety of land uses. This could be a development that integrates uses in the same building, such as residential units above commercial space. It also might include different uses in separate locations as elements of a larger development, as part of a master plan. While it is possible that an appropriate development project in a Mixed Use area could include only one type of land use, other land use designations are available for development with only one type of land use. Development in areas guided Mixed Use typically will take advantage of the flexibility available with the use of a planned unit development. The City does not require a PUD for development in a Mixed Use area. However, it is the preferred design tool because development that includes a variety of uses typically will pose challenges best addressed with the flexibility available with a PUD. Amending the comprehensive plan to guide new areas for Mixed Use should be reserved for areas that have undergone significant environmental review. Commercial development typically will require more impervious surface than residential development, which raises stormwater management design challenges. Traffic generation differs between different land uses. The Mixed Use and use designation envisions varied land uses, and recognizes the possibility of design challenges, including environmental impact issues. These can best be addressed with extensive environmental review. Amending the comprehensive plan to guide new areas for Mixed Use and development with these areas should be reserved for development that promotes clearly identified public purposes. Such purposes may include but are not limited to: a) provision of housing unit variety that contributes toward meeting housing goals, such as medium density, high- density, and mixed -use developments in locations designated for them in the comprehensive plan b) provision of infrastructure that will provide benefits beyond the project site, in accordance with City transportation, sewer, or water plans, that is not financially feasible without the project • Comprehensive Plan Amendment Village of Hardwood Creek page 6 c) preservation of environmental features that would not occur without the project d) provision of economic benefits to the City that would not occur without the project Development in areas guided Mixed Use must comply with the following performance standards: 1. The land use and site design must be sensitive to the surrounding land uses in the area, including but not limited to building height, exterior composition, landscaping, and site access. 2. The road network within new development shall promote the safe and convenient traffic movement. The project design must incorporate access management design elements for access to arterial and collector roadways. 3. Municipal water and sanitary sewer service must be available. 4. All development shall address environmental concerns with regard to site planning, landscaping, impervious surfacing, open space, and storm water management. Stormwater management must incorporate- methods to protect and improve water quality such as infiltration, buffering of water bodies, and other natural methods whenever feasible. 5. Commercial site designs shall emphasize pedestrian accessibility, connections to residential neighborhoods, shared parking, and green space to create a customer friendly environment and promote a high level of interaction among local businesses and between businesses and residents. 6. Architectural and site standards shall be applied to establish aesthetically pleasing, high quality buildings and streetscapes. Village of Hardwood Creek The Village of Hardwood Creek development area is located 1/4 mile north of Main St., between I -35E and CSAH 21 (20th Ave.). This 360 -acre development site is to be developed with commercial and residential uses. The concept plan for the development includes 500,000 to 600,000 square feet of commercial space on 55 to 70 acres of the site. A variety of single family and multi - family residential development will include approximately 1200 to 1250 dwelling units. The net residential density is to be approximately 4.5 units per acre, when including all land not within the commercial area. While these are the approximate use parameters, the specifics of the development are to be part of a master plan using a planned unit development approach. Comprehensive Plan Amendment Village of Hardwood Creek page 7 In the northeast corner of the site, a triangle is formed by I -35E, a pipeline, and the property boundary. This area could be designed to accommodate an office campus type use, which could be a suitable land use along the freeway. This would reduce the amount of residential land noted above. Such flexibility is appropriate for the area. This site is included in the Alternative Urban Areawide Review (AUAR) environmental analysis. Development must comply with the mitigation plan that forms a part of the AUAR. This area was guided Mixed Use with an amendment to the comprehensive plan in 2005. This amendment was intended to fulfill the City's growth management policy requirement that amendment of the comprehensive plan shall be required if, in order to accommodate a specific development project, the annual target for new growth (units /year) would be exceeded. Text Amendment: Planning District 6 The comprehensive plan breaks the city into planning districts. The Village of Hardwood Creek site is in Planning District 6. The PUD application will be compared to the recommendations listed for Planning District 6. However, some reference to this site and its Mixed Use designation is appropriate. • The following text be added to the comprehensive plan in the Planning District 6 section, on page 153: Village of Hardwood Creek The Village of Hardwood Creek development area is located 1/4 mile north of Main St., between I -35E and CSAH 21 (20th Ave.). This 360 -acre development site is guided Mixed Use and to be developed with commercial and residential uses. This site is described in the Mixed Use section of the Land Use Plan chapter. The specifics of the development are to be part of a master plan using a planned unit development approach. (5) Text Amendment: The 147 Statement On Page 27 of Comprehensive Plan The comprehensive plan includes a great number of goals, policies, objectives, recommendations, and strategies. The Policy Plan chapter includes a list of growth management goals and policies. Policy number nine is: "Limit residential growth to an average of 147 units per year, carrying a three year supply lot inventory." The growth management ordinance, Ord. 24 -04, provides for amending the comprehensive plan if this target is to be exceeded: Comprehensive Plan Amendment Village of Hardwood Creek page 8 An amendment of the comprehensive plan shall be required if, in order to accommodate a specific development project, the annual target for new growth (units /year)...would be exceeded (Section 2, par. 7.). The amendment will include the description of the site in the Mixed Use section, as explained above. However, in order to avoid confusion, it would be advisable to amend the limiting statement itself to provide for the possibility of amendment described in the growth management ordinance. • The statement on page 27 of the comp plan should be amended to read as follows: 9. Limit residential growth to an average of 147 units per year, carrying a three year supply lot inventory. Specific projects that are found to fulfill specified public purposes can justify amending this comprehensive plan to exceed this limit. The City Council shall consider such an amendment only if the specific development project will promote a clearly identified public purpose. The public purpose may include but is not limited to: a) provision of housing unit variety that contributes toward meeting housing goals, such as medium density, high- density, and mixed -use developments in locations designated for them in the comprehensive plan b) provision of infrastructure that will provide benefits beyond the project site, in accordance with City transportation, sewer, or water plans, that is not financially feasible without exceeding the target c) preservation of environmental features that would not occur without exceeding the target d) provision of economic benefits to the City that would not occur without exceeding the target These four public purpose examples are taken directly from the growth management ordinance. These are listed as potential reasons to justify an amendment of the comp plan if a project would exceed the annual growth target. Incorporating them into the comp plan itself provides consistency between the comprehensive plan and the growth management policy ordinance. (6) Text Review: Demographic Goals The "Local Forecasts" section of the Land Use Plan chapter includes the growth goals for the next decades: households, population, and employment. This statement is found on page 63: "The goals assume an average of 147 new households annually through the year 2020." This statement merits discussion. Comprehensive Plan Amendment Village of Hardwood Creek page 9 To amend this statement raises the question of amending the growth projections, an important part of planning the community's future. This will be extensively analyzed and discussed as part of the overall review of the comprehensive plan that must be completed by the end of year 2008. • Therefore, we recommend no amendment to this statement in the comprehensive plan. Conservation Development Issues Stormwater management methods, open space areas, connecting habitat and trail greenways are conservation development elements described in several policy documents. The Parks, Natural Open Space /Greenways and Trail System Plan provides guidance. The draft Alternative Urban Areawide Review (AUAR) discusses such elements and will include a number of them in its mitigation plan. As an incentive, the growth management policy allows conservation development to be exempt from a number of the growth restrictions. The applicants originally intended the application to be a conservation development project. They are aware of the City's desire to encourage conservation design, and have been following the AUAR project. They also found the growth management incentives attractive. However, the exemptions from growth limits do not include the Stage 1 MUSA total, so a comp plan amendment would still be necessary. In addition, we need a great deal of information to classify a project as a conservation development in order to exempt it from the specified growth restrictions. Specific information would include such things as stormwater management designs, open space designs, long term stewardship plans for open space, etc. Such information typically would be included in a planned unit development /plat application. The current application for a comprehensive plan amendment does not include detailed information that would support exempting a "conservation development" from specified growth . management limits. Even so, we support the developer's efforts to incorporate as many environmentally friendly elements as possible as the development design proceeds. The open space, innovative stormwater management methods and attention to the long term management of these design features demonstrate good planning by the developer and are consistent with the City's environmental planning goals. • Comprehensive Plan Amendment Village of Hardwood Creek page 10 PLANNED UNIT DEVELOPMENT GENERAL CONCEPT PLAN The developer's intent is to master plan the 363 acres for commercial and residential uses. The specifics are not finalized yet. As described in the zoning ordinance, the purpose of a PUD general concept plan is to provide an opportunity for the applicant to submit an application and plan to the City showing the basic intent and the general nature of the entire development. The concept plan provides an opportunity for the proposal to be publicly considered at an early stage. The following elements of the proposed general concept plan represent the immediately significant elements for review, as listed in the zoning ordinance. 1) Overall Maximum PUD Density Range. The application includes ranges of units and acreages. In Lino Lakes, density is calculated on the net area: simply by subtracting the wetlands from the gross site acreage. Some rough estimating, which includes open space and right of way data for the residential area only, leads to a residential density about 4.5 units per acre. 2) General Location of Major Streets and Pedestrian Ways. The concept plan includes the main collectors and access points envisioned in the draft AUAR (see attached Figure 21 -1 from AUAR).. A local north/south collector provides a route through the site. Two collector roads provide access to 20th Ave. on the west of the site. The north/south collector would continue south to access Main St., and north to future developments. The concept plan also shows an internal local circulation network providing access for the residential development areas. The AUAR recognizes the importance of managing access to major transportation infrastructure. Collector and arterial roads will not function well if new road intersections and driveways are allowed without an overall plan. The AUAR follows access management guidelines with %2 mile spacing between full intersections on 20th Ave. The development site does not abut Main St. The pictured collector road would need to extend 1/4 mile south of the site to access Main St. The Centerville /Lino Lakes border complicates the situation, as does the undetermined interchange design. The location of the access to Main St. is still under consideration. Main St. is challenging because of the I -35E interchange planning underway among Lino Lakes, Anoka County, Centerville, and MnDOT. The current front runner for the interchange design includes a typical diamond with one exception. In the northwest quadrant of the interchange, the southbound exit ramp forms a new intersection and continues onto a new local road south of Main St. (see attached figure). This new local road would run between the existing 21st Ave. and I -35E. The new signalized intersection on Main St. would be only about 600 feet from 21st Ave. The latest plan is to convert the 21st Ave. intersection to limit turning • Comprehensive Plan Amendment Village of Hardwood Creek page 11 movements and allow westbound Main St. traffic to flow freely from the exit ramp to 20th Ave. The 20th Ave. intersection will be signalized. All this means that the location of 21st Ave. north of Main St. is an important consideration. The road design does not need finalization as part of the comprehensive plan amendment approval. However, the road design must fulfill the traffic needs. A traffic study has resulted in a recommendation that running a new road from Main St. north to the Hardwood Creek development on the west side of the existing bank and would be an acceptable alternative. This road could provide full access to the north with enough stacking distance and the level of service would be acceptable. However, there are additional considerations such as access to properties within Centerville, water and sanitary sewer trunk alignment to serve the project, and Anoka County's view of access in the area, including spacing of signalized intersections. The new road might end up being a right in/right out only, with primary access to the site from 20th Ave. It could also end up aligning with the existing 21St Ave. These questions will apply whether or not the comprehensive plan is amended and no matter how the site is developed. The point is that there are alternatives for creating accesses to the site. The details will have to be worked out at part of the PUD review. 3) General Location and Extent of Public and Common Open Space. The concept plan includes an extensive open space network. The open space is to include stormwater management features, parkland, and trails combined into a large greenway system. Several branches of the county ditch system lay in tiles crossing the site. However, many drain tiles that are not part of the ditch system were placed on the site over the years to drain the land for agriculture. Much of the potential for incorporating conservation development elements into the development lies with the stormwater management design. Utilizing infiltration to the greatest extent possible will be important, as will accommodating the flow currently carried by the numerous drain tiles. The Parks, Natural Open Space /Greenways and Trail System Plan includes trail connections to be created on the site. The concept plan includes these and more to facilitate walking and biking within the site and to connect to trails outside the site. The greenway system would utilize the pipeline easement as part of the trail network. 4) General Location of Residential and Non - Residential Land Uses with Approximate Type and Intensities of Development. Single family and multi - family residential areas are shown on the concept plan. Housing will cover approximately 150 to 170 acres. Commercial uses in the southeast portion of the site will comprise 55 to 70 acres. The following table is taken from the concept plan. Comprehensive Plan Amendment Village of Hardwood Creek page 12 Total 363 acres Commercial 500,000 to 600,000 sf 55 to 70 acres Residential Single family 400 to 420 units Multi - family 800 to 830 units 1200 to 1250 units 150 to 170 acres Open Space 80 to 95 acres Public Right of Way 55 acres 5) A Staging and Time Schedule of Development. The submittal includes a phasing plan. The site would develop from south to north, with over half the commercial development and some residential in phase one. Phase two would include the rest of the commercial area and a large amount of residential. Phases three and four would continue the residential development. The developer envisions full build out of the site over six years. 6) Other Special Criteria for Development. The AUAR has not yet been completed. Much of the project design will depend on the AUAR, particularly the mitigation plan. In addition, several roadway issues must be resolved. These include the design of the I -35E interchange and the final design for the intersection at 21St Ave. and Main St. Timing will be another important aspect of this development. Transportation infrastructure is needed to support a development of this size. In addition, improvements to the water and sanitary sewer infrastructure will be needed to support full build out of the project. The extent and timing of site development will rely heavily upon these issues. The City Engineer's memo is attached. What can be seen in the concept plan is an extensive open space /greenway network. This will provide for trail connections, stormwater treatment, buffering from the freeway, and the potential for wildlife habitat. Though we don't have design details, the developer is including many conservation development elements in the site design. We'll see more with the PUD application. We are encouraged and support the efforts so far. ENVIRONMENTAL BOARD The Environmental Board discussed the application on August 31. Because this is not an actual plat application with specifics, the Board's recommendation is general: "The • • Comprehensive Plan Amendment Village of Hardwood Creek page 13 Environmental Board supports the general environmental direction of the Village of Hardwood Creek, realizing that there is a lot more to be done." OPTIONS 1. Recommend approval of the comprehensive plan amendment. 2. Recommend denial of the comprehensive plan amendment. 3. Comment on PUD concept plan. RECOMMENDATION Options 1 and 3 The application fulfills the following criteria, which are listed both for exceeding the 147 annual units statement and the Mixed Use section: a) provision of housing unit variety that contributes toward meeting housing goals, such as medium density, high- density, and mixed -use developments in locations designated for them in the comprehensive plan There are two specific goals that relate to this application in the Policy Plan section of the comprehensive plan: 1. Provide a healthy variety of housing types, styles and choices to meet the changing life cycle needs of the Lino Lakes Population. 3. Promote multiple family housing alternatives as an attractive life cycle housing option. The application will amend the plan to designate the site for multi - family as well as single family development. b) provision of infrastructure that will provide benefits beyond the project site, in accordance with City transportation, sewer, or water plans, that is not financially feasible without the project The AUAR lays out a transportation framework to guide future planning. This includes a local roadway system within development areas to avoid relying entirely on CSAH 14 and CSAH 21 for traffic movement. The system framework provides access to areas within the application site as well as to land north of the site. This roadway system is vital to good transportation planning Comprehensive Plan Amendment Village of Hardwood Creek page 14 in the eastern part of Lino Lakes. The Village of Hardwood Creek development will construct these streets and by doing so build a major part of the needed transportation system as part of one project. Smaller developments would not be able to create the system. and the City will not be able to construct these streets. In addition, Anoka County has identified the need to improve CSAH 21 to handle projected traffic volumes. This project will provide resources to make significant improvements to CSAH 21 because improvements will be needed in order for this project to proceed. The utilities (water and sanitary sewer) that will be constructed with this project will include trunk lines planned to serve other property. Like the road system, this will provide a large piece of the utility systems needed in this part of the city. It is important to note that approval of this comprehensive plan amendment does not grant or imply any right to an approval of the PUD application that will follow. Design specifics, including road alignments, will be part of a full PUD review. • • • • Site Location • • LAND USE PLAN (DETAIL) LINO LAKES COMPREHENSIVE PLAN w • URAL LOW DENSITY SEWERED RESID: ESID. LOW DENSITY 1 UNSEWERED RES:ID; LOW DENSITY SEWERED RESID. ° INDUSTRIAL • ■ `. ■ ■ ■ -i • • PROPOSED AMENDMENT TO LAND USE PLAN (DETAIL) LINO LAKES COMPREHENSIVE PLAN URAL LOW DENSITY SEWERED LOW DENSIT-X r UNSEWERED RESID:° LOW DENSITY SEWERED %S. iT RESID. • • • ZONING MAP DETAIL 1 4101 • • • AUAR Figure 21 -1: Existing and Proposed Transportation Network roi II C :aN 111 I41E Erlitna and Proposed innaportalltanarsisatamacienalme St 1sla/a .,.0•a, ,..a, .a.. o itC • V u.p..MmSC..Y ,SEE SITE Figure 21 -1. Existing and Proposed Transportation Network • • I- 5 E at Anoka CSAH 14 Interchange Concepts Prepared by SRF April 29, 2CC'C5 Diamond plus northwest loop