HomeMy WebLinkAbout#04 - Stillwater Comp Plan Update1
STAFF REPORT
DATE: 4/2/2019
CONSENT
ITEM #:
TO: City Council
FROM: Ken Roberts, Planning Director
AGENDA ITEM: Stillwater Comprehensive Plan Adjacent Jurisdictional Review
Comments
REVIEWED BY: Kristina Handt, City Administrator
Jack Griffin, City Engineer
BACKGROUND:
Stillwater has completed a draft of their 2040 Comprehensive Plan Update and has submitted
for adjacent jurisdictional review. The review period ends April 18, 2019. Staff has prepared
draft comments for review and consideration by the City Council.
ISSUE BEFORE CITY COUNCIL:
The City Council is being asked to review and approve staff-prepared comments about the
proposed Stillwater 2040 Comprehensive Plan Update.
PROPOSAL DETAILS/ANALYSIS:
Below provides a summary and analysis of Stillwater’s proposed 2040 Comprehensive Plan,
focusing on areas that may have an effect on Lake Elmo:
Introduction. The City is projected to increase to a population of 22,800 by 2040, which
would be a 25 percent increase over their 2010 population of 18,227. For households, they
are projecting to have 9,600 households by 2040. This would be an increase of 36 percent
over the 7,076 households in Stillwater in 2010.
Land Use. Future land use shown in their 2040 Comprehensive Plan has not changed
significantly since the 2030 Comprehensive Plan. The City has identified several pockets or
areas in their Land Use Plan where growth or redevelopment might occur. The areas that are
of most interest to Lake Elmo include the area in the southwest corner of the Stillwater near
Highway 36 and Manning Avenue. In the plan they note that the northeast quadrant of
Highway 36 and Manning Avenue will serve as the future site of Lakeview Hospital.
Their land use plan also show mixed use development occurring along the north side of
Highway 36 east of Highway 5 (County Road 14).
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The land use plan (pages 2-15 and 2-16) shows an Area G which is on the south side of
Highway 36 and east of Manning Avenue (which now is in Stillwater Township). Stillwater
has included this land area in their Comprehensive Plan as it has become more attractive to
developers with the prospect of a new interchange and a new hospital locating across
Highway 36 to the north. Their plan notes that “this area has presented the City of Stillwater
a unique opportunity to extend city services (sewer and water) to accommodate development
interests, particularly in the southeast quadrant. In that respect, the Comprehensive Plan
assumes this area will be annexed in the near future. To help prepare for potential
annexation, the Comprehensive Plan recognizes this area as future Highway Mixed Use.”
Their plan does not definitively identify road and street connections to this area or which
agency would provide sewer and water needed for future development.
The site identified in the Land Use Plan as Area G has the most potential for affecting Lake
Elmo and its residents. As this area develops, there will likely be traffic increases (especially
once Washington County completes the Highway 36/Manning Avenue interchange) that
could affect Lake Elmo residents to the west and south of that area. How the site develops
with street connections and intersections, building setbacks, heights and intensities and
screening are all factors that Stillwater should take into account when reviewing and
approving development plans for the area. Lake Elmo will want to ensure that the City of
Stillwater requires and puts in place measures and development standards to minimize the
negative effects that new development could have on the existing residents in the area.
The proposed Comprehensive Plan describes the Highway Mixed Use as a new land use
category in the Comprehensive Plan. The plan states the mixed use designation will provide
for more flexibility to accommodate residential development in a mixed use fashion. They
expect this area to have a mix of residential (30 percent) and commercial uses (70 percent)
with buildings ranging from 1-4 stories in height and residential components ranging from 12
to 25 units per acre; with increases allowable through the PUD process.
The City Engineer also reviewed their proposed Comprehensive Plan update. I have attached
his comments (dated February 11, 2019) for reference.
Transportation. The proposed Stillwater Comprehensive Plan notes the upcoming
intersection improvements at Highway 36 and Manning Avenue and several other street and
road improvement projects that are programmed or identified for future work within their
City.
RECOMMENDATION:
Staff recommends, as part of tonight’s consent agenda, that the City of Lake Elmo provide the
City of Stillwater with the following comments about their proposed 2040 Comprehensive Plan:
“Move to make the following comments about the draft Stillwater 2040 Comprehensive
Plan.”
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1. The proposed land use plan (pages 2-15 and 2-16) shows an Area G which is on the south
side of Highway 36 and east of Manning Avenue (which is now in Stillwater Township).
How the site develops with street connections and intersections, building setbacks,
heights and intensities and screening are all factors that Stillwater should take into
account when reviewing and approving development plans for the area. Lake Elmo
encourages the City of Stillwater to recognize the adjacent single-family residential and
open space land uses in Lake Elmo and require significant screening and buffering
standards between the proposed Highway Mixed Use and Open Space land uses.
Stillwater should put development standards in place to minimize the negative effects the
new development in the area east of Manning Avenue could have on the existing
residents in the area.
2. The City of Lake Elmo is concerned about the potential impacts that the changes to the
road system in and near Area G could have on existing residents – especially those living
in the Sanctuary development west of Manning Avenue. The City of Lake Elmo expects
that any future road changes will preserve the existing level of street access for those
residents and that any changes will not require longer drives or circuitous routes for them
when they leave their development.
3. The City of Lake Elmo wants to work with the adjacent government agencies (including
Stillwater) to develop a roadway ownership, cost sharing and maintenance responsibility
agreement for Manning Avenue, south of Highway 36. As the Highway 36-Manning
Avenue interchange project proceeds and the southeast quadrant of the intersection
develops, there will be significant cost implications going forward that will need to be
addressed and agreed upon by all affected government agencies.
4. The City of Lake Elmo either provides, or can readily, provide municipal water service to
the areas of Lake Elmo immediately adjacent to Area G. However, sanitary sewer is not
readily available to serve these areas. Since these areas are outside Lake Elmo’s planned
MUSA boundaries, the City has not prepared any plans to bring municipal sanitary sewer
to that area.
Or, as another option, the City Council could choose to make no comment about the Draft
Stillwater 2040 Comprehensive Plan with the following motion:
“Move to make no comments about the draft Stillwater 2040 Comprehensive Plan.”
ATTACHMENTS:
1. Proposed Chapter 2: Land Use
2. City Engineer’s report dated February 11, 2019
3. Click on the link below to find the draft Stillwater 2040 Comprehensive Plan
https://www.ci.stillwater.mn.us/2040compplan
PLAN OF STILLWATER
Chapter 2 : Land Use 2-1
Land Use
Introduction
There are two main purposes of this Land Use Chapter and its
Future Land Use Map (together referred to as “The Land Use
Plan”): 1) to identify how land should be developed to accomplish
the overall objectives of the city; and 2) to ensure that resources
will be available to provide a consistent level of public services to
the community. The Land Use Plan establishes the foundation for
all elements of the Comprehensive Plan. Using this plan the City
will determine how best to balance and link all the necessary land
uses including housing, commerce, industry, parks, public uses,
and open spaces.
Goals & Objectives
Stillwater has a strong sense of identity and a commitment to
maintaining the elements that form that identity: the uniqueness
of its history, quality natural resources, and well-designed
amenities. The City of Stillwater worked with its citizens,
City Council, commissions, and the CPAC to develop land use
goals with supporting objectives. The goals and objectives are
the foundation of the Land Use Plan, as they define what the
community envisions its future to become. Discussions in this
chapter will address how future land use decisions, types of
land uses, and styles of development will support these goals
and objectives. Policies contained in this chapter will provide
direction towards implementation of the plan.
Chapter 2 Contents
Introduction ........................2-1
Goals & Objectives ...................2-1
Community Character ................2-3
Existing Land Use ...................2-4
Metropolitan Council Objectives .......2-8
Areas of Change .....................2-8
Land Use Plan Category Definitions ...2-17
Protecting Special Resources .........2-26NEALAVENPARISAVE
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2-2
PLAN OF STILLWATER
Chapter 2 : Land Use
Land Use Goals
Goal 1. Maintain a healthy balance in land uses
between residential, commercial, research and
business park, industrial, and park / open space.
Objectives
1. Utilize the future land use map as the overall land
use policy statement by designating residential,
commercial and parks and open space lands
appropriately located with adequate access and
buffering from adjacent uses.
2. Future development in Stillwater incorporates
appropriate levels of density and design to
support increased housing options, the viability
of neighborhood commercial uses, and overall
long-term neighborhood sustainability.
3. Designate lands appropriately located for a
range of residential uses, commercial uses, light
industrial uses, parks and open spaces on the
land use map.
4. Determine the desired growth rate and phase
urban services to accommodate the growth to
2030 and 2040.
5. Encourage neighboring communities to
incorporate compatible land uses along their
corporate limits that are shared with the City
of Stillwater.
6. Screen views to the extent possible from
Dellwood Road, Manning Avenue, Myrtle
Street, McKusick Road, Boutwell Avenue
and Trunk Highway (TH) 36 using existing
vegetation and landforms, new landscaping,
wetlands and greenways.
Goal 2. Maintain Stillwater as a separate and
distinct community from the surrounding area.
Objectives
1. Promote the orderly, planned and
harmonious development of Stillwater and its
surroundings.
2. When feasible, nonresidential land uses such as
neighborhood commercial centers, employment
areas and schools shall be buffered from all
adjacent residential uses, connected by trails
to residential areas, and appear subdued in a
landscaped setting as viewed from the public
roads.
3. Retain the unique and/or historic character of
existing residential areas.
4. Preserve Stillwater’s desirable small town
character by planning residential development
and the establishment of neighborhood
character in new areas.
5. Support neighborhood commercial nodes
within walking distance of residential areas
without negatively impacting those residential
areas.
Goal 3. Preserve, maintain and continue building
the greenbelts in the western and northern
portions of the City.
Objectives
Work with future developers to ensure trail
development is planned and developed
according to the updated Park and Trail Plan.
Maintain the open space separation between
Stillwater and surrounding semi-rural
township areas with zoning regulation, open
space dedication, development design review
and land purchase, as appropriate.
Goal 4. Encourage quality-designed in-fill
developments that relate to their natural settings,
integrate with surrounding properties, create
open space and recreational opportunities where
appropriate, and that provide connectivity with
community destinations.
Objectives
1. Work with future developers to ensure
adequate and appropriate park land is planned
for and developed based on the updated Park
and Trail plan.
2. Work with future developers to protect and
maintain important resources.
PLAN OF STILLWATER
Chapter 2 : Land Use 2-3
Community Character
For Stillwater, character is found in the natural and
cultural features that make it a truly special place.
It is defined by the physical landscape, the built
environment of downtown and varied residential
areas, the gateways into the city, and its numerous
and remarkable scenic vistas. Existing land use,
development patterns and the plan for future
redevelopment are also important contributors to
that community character.
This section pays tribute to some of Stillwater’s
defining character elements. These elements should
be considered when planning for future land uses.
The Physical Landscape
Stillwater has numerous special natural features,
including the St. Croix River with its dramatic
limestone bluffs, the pronounced ravine system
dissecting the bluff line, and the rolling upland
topography with its many lakes, creeks and natural
open spaces that provide a complementary natural
system to the river front.
The Built Environment
Stillwater’s historic downtown district is dominated
by brick buildings generally constructed during
the lumbering era between 1860 and 1910. Main
Street forms the backbone of downtown. The
south end of Main Street retains a core of historic
buildings, while the north end is characterized by
redevelopment that complements the downtown’s
historic context. West of downtown, the bluff lines
and hills are sprinkled with church steeples, the
historic courthouse and 19th century homes.
The city’s rich history plays an important role in
how the city developed and how it will approach
redevelopment. Stillwater’s older neighborhoods
include residential areas with historical architecture,
as well as a traditional downtown built in the
mid-1800s. These important areas are defined
by the traditional grid street pattern. Together,
these historical neighborhoods are referred to by
residents as “Old Town.”
The city also features a wide mix of more recent
development, which includes commercial
properties and residential properties west of “Old
Town.” Fairly rapid residential growth occurred
in waves throughout the 1970s and 1980s. These
neighborhoods were built to accommodate young
families. Two of these neighborhoods, Croixwood
and Oak Glen, still lure families with their larger
homes at moderate prices.
Another wave of development began in the
middle 1990’s after the City and Township of
Stillwater reached an agreement related to orderly
annexation. Although Stillwater’s development
spread westward with this agreement, the City
did not lose sight of its historical roots. A unique
development plan with equally traditional, yet
modernized, architecture and neighborhood
design was showcased in Liberty on the Lake,
located south of Myrtle Street and east of Manning.
This development serves as one of the first models
of New Urbanism, or Traditional Neighborhood
Design, in the state.
2-4
PLAN OF STILLWATER
Chapter 2 : Land Use
Entryways
Stillwater is fortunate to have many strong natural
gateways into the city. Some of those gateways are
pronounced and fairly dramatic.
South Entrance: The gateway from the
south end of downtown Stillwater on TH
95 is as dramatic as driving out of a tunnel.
The tunnelling effect is created by the sheer
limestone bluff on the west side of the
highway and the forested river banks on
the east side. Exiting the tunnel, as it were,
occurs at the Wolf’s Brewery buildings,
where the limestone bluffs bend sharply
westward and the historical downtown
opens abruptly into full view.
North: The north gateway into downtown
is equally scenic. The sheer bluffs give way
to a view of historic structures and new
mixed use buildings carefully designed to
complement the historic setting.
West: Myrtle Street serves as a secondary
entrance to downtown from the west and is
most commonly used by residents. Its view
of the St. Croix River Valley and the Lowell
Park gazebo is one of Stillwater’s iconic
images.
Scenic Overlooks
Stillwater has two scenic overlooks. High above
downtown, on the bluffs of the St. Croix River Valley,
these overlooks provide spectacular panoramic
views of the valley, downtown and encompassing
bluff lines. The overlooks are located at the top of
the Main Street stairs and in Pioneer Park.
Existing Land Use
The City’s existing land uses are represented by the
categories and locations displayed in Figure 2.1 and
Table 2.1. This figure and table reflect the actual use
of the land as of January 1, 2018.
The predominant land use is residential, at 39.67
percent of the City, followed by park, water/wetland
and open space uses at 32 percent. The City sees 4.89
percent of its total acres occupied by institutional
uses, which include schools, religious institutions,
hospitals, city and county government buildings,
and cemeteries. This percentage of institutional
property is high compared to other developed
communities, which are usually at 1 percent or
less. The existence of the hospital and county
government buildings drive up the percentage as
they are on sizeable parcels of property.
Table 2.1:Existing Land Use
Existing Land Use Acres Percent
Commercial 289.45 4.97%
Industrial 52.79 0.91%
Vacant or Agricultural 146.92 2.52%
Residential (1 Unit)2,093.83 35.97%
Residential (2 Units)30.55 0.52%
Residential (3-4 Units)44.35 0.76%
Residential (4+ Units)84.27 1.45%
Residential (Misc.)56.27 0.97%
Institutional 284.72 4.89%
Parks, Trails and Recreation 602.80 10.36%
Open Space 305.25 5.24%
Open Water or Wetland 954.51 16.40%
Right-of-Way 875.60 15.04%
Total:5,821.30 100.00%
Note: Existing land uses are based on Washington County Property Record
data as of January 1, 2018. The data depicts “general” land use categories and
may not be an accurate representation of a property’s land use. Please visit
https://mn-washington.manatron.com/ for more information.
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PLAN OF STILLWATER
Chapter 2 : Land Use 2-7
Residential
Existing residential uses have been mapped
according to the number of residences on a property.
The category named “Residential 1 Unit” includes
only single family homes. “Residential 2 Units” is
for duplexes and twin-homes, and single family
homes with one apartment. The 3-4 Unit category
includes townhomes, single family homes with two
apartments, and small apartment buildings. The 4+
designation reflects the city’s existing townhomes,
apartments, and condominiums.
Commercial
This category has wide spread application to
all commercial related uses, from downtown
businesses that include locally owned shops to
the larger retail uses along TH 36, so this category
includes general commercial, restaurants, hotels,
convenience stores, office and service uses. It also
includes bed-and-breakfasts, short-term rental/
vacation investment properties, and marinas.
Mixed Use
This category primarily reflects properties in the
downtown that have commercial or office, and
residential uses combined.
Industrial
This includes light or heavy industrial land uses,
large warehouse facilities and offices.
Public/Institutional
This category includes lands owned by the City or
County for public use such as the library, city hall,
public works facility, and the Washington County
government center. This category also includes
quasi-public uses such as the hospital, schools,
churches, nursing homes, and other publicly or
privately owned social service providers.
Open Space
This category refers to natural areas (such as ravines,
bluffs, creeks, wetlands and pond buffer areas) as
well as miscellaneous unbuildable properties. This
category does not include active recreation areas or
parks.
Park, Trail & Recreation
Includes all areas used for public or private
recreational activities that are improved with
playfields, playgrounds or exercise equipment, or
other similar areas, as well as passive park amenities.
Typical uses include tot lots, neighborhood parks,
community parks, ball fields, golf courses, public
gardens, trail corridors, beaches, and community
centers.
Vacant or Agricultural
This refers either to developed lots that do not
have a principal building, or developable areas that
are not currently developed. In some cases, these
parcels may still be used for farming.
Open Water or Wetland
This refers to permanent open water, rivers and
streams, wetlands or periodically flooded areas.
This category does not generally include developed
stormwater basins.
2-8
PLAN OF STILLWATER
Chapter 2 : Land Use
Metropolitan Council Objectives
As noted in Chapter 1, Stillwater is designated by the
Metropolitan Council’s Thrive MSP 2040 regional
development plan as a “Suburban” community.
Thrive MSP 2040 establishes two policies to guide
regional and local land use and development:
1. Orderly and Efficient Land Use – Align
land use, development patterns, and
infrastructure to make the best use of public
and private investment.
2. Building in Resilience – Promote sensitive
land use and development patterns to
contribute toward achieving Minnesota’s
adopted greenhouse gas emission goals
at the regional scale, and to develop local
resiliency to the impacts of climate change.
Thrive MSP 2040 elaborates on the community’s
role in implementing these two land use policies
to accommodate growth forecasts through new
development and redevelopment. In Suburban
communities, this role may include the following
land use strategies:
Plan for forecasted population and
household growth at overall average
densities of at least 5 units per acre, and
target opportunities for more intensive
development near regional transit
investments at densities and in a manner
articulated in the 2040 Transportation Policy
Plan.
Identify areas for redevelopment,
particularly areas that are well-served by
transportation options and nearby amenities
and that contribute to better proximity
between jobs and housing.
In collaboration with other regional
partners, lead major redevelopment efforts.
Lead detailed land use planning efforts
around regional transit stations and other
regional investments.
Plan for and program local infrastructure
needs (for example, roads, sidewalks, sewer,
water, and surface water), including those
needed to accommodate future growth and
implement local comprehensive plans.
Through this plan, the City will strive to meet the
objectives of the Metropolitan Council through
reinvestment projects, infill and portions of the
community that are still developing. These areas
are highlighted in the following section.
Areas of Change
Since the City of Stillwater adopted the 2030
Comprehensive Plan (in 2008), a number of
elements have changed and evolved over time
that impact how the city will look to land use in
the future. Some general trends over the last ten
years that have an impact on future land use for
Stillwater include:
The Great Recession of 2008 - 2010
had reverberating effects on housing
development, commercial development, and
employment.
Online sales and delivery have shifted the
face of commercial land uses, resulting in
less of a demand for physical brick & mortar
stores, but new emphasis on “experience”
based commercial and entertainment uses.
Growing desire by residents and visitors to
have neighborhoods well-connected to trails
and parks.
A larger emphasis on sustainability practices
see Chapter 1) to preserve and protect the
environment for future generations.
A growing demand for housing options
that are well-connected to public services,
transportation options, and commercial
uses. This also includes a strong demand
for a variety of housing options that meet
the needs for all (e.g., different age groups,
lifestyles and income levels).
These general trends have led to specific changes
and areas of focus in the Future Land Use Plan,
which is described below.
PLAN OF STILLWATER
Chapter 2 : Land Use 2-9
Changes to Commercial Land Uses
The 2030 Land Use Plan included two different
Commercial Land Use Designations: Commercial
and Neighborhood Commercial. As part of the 2040
Land Use Plan, changes to the commercial land use
categories were made in order to both clarify and
better-reflect community direction.
Neighborhood Commercial Expansion
Instances of Neighborhood Commercial areas have
been identified throughout the City. One area of
change includes the northeast corner of Manning
Avenue and Myrtle Street. The 2030 Comprehensive
Plan included a market study to determine whether
the western portion of Stillwater could support
additional retail square footage given existing
and planned future growth in the area. This study
estimated that the northeast corner of Manning
Avenue and Myrtle Street could support anywhere
from 35,000 to 47,000 square feet of additional retail.
However, the site remained guided for residential
until the orderly annexation agreement was
amended. The 2040 Comprehensive Plan has now
recognized this area as Neighborhood Commercial.
Narrowing “Commercial” to “Community
Commercial”
The former Commercial designation has been
narrowed to Community Commercial, while many
of the areas formerly designated as “Commercial”
have been changed to a new designation of
Highway Mixed Use, described below.
New Land Use Designation: Highway Mixed Use
Over the next 20+ years, a general challenge facing
Stillwater is remaining competitive with other
communities as a desirable place to live, work
and play. In seeking to maintain a competitive
edge, Stillwater will need to continue strategic
investments that promote redevelopment in
select areas. One option is to introduce residential
development in a mixed-use fashion as part of the
TH 36 commercial corridor.
TH 36 defines the southern boundary of Stillwater.
Existing land uses along the corridor include a
mix of commercial, office and industrial uses.
The commercial uses fronting TH 36 include
freestanding businesses, big box retailers and strip
malls. Residential uses are also present abutting
commercial and industrial to the north. These uses
include single-family dwelling units, duplexes and
apartment buildings.
Mixed-use refers to the integration of residential,
commercial, retail, employment, and recreation
in a way that not only supports and enhances
each element in the development, but provides
residents in the surrounding neighborhoods a rich
and diverse environment in which to live, work,
and shop. Recent trends have shown an increase
in the number of people choosing to live in higher
density housing integrated with commercial and
retail uses.
Allowing for this type of development to occur
in the corridor will help better align with market
trends, while supporting the City’s affordable
housing goals (see Chapter 4). Introducing mixed-
use development to the corridor will also offer new
opportunities to redevelop as the corridor adapts
to a changing economy. For example, a shrinking
market for big-box retailers is a national trend
that is resulting in some big-box stores closing
or reducing the size of their building’s footprint.
Many of the big-box retailers along the TH 36
corridor are still operating strong. In the event that
any of these stores close, a mixed-use designation
for the corridor would provide other options for
redevelopment to occur in a different form.
Downtown Redevelopment
Chapter 6 provides more information regarding
downtown redevelopment areas. The Land Use
plan will continue to recognize the Downtown land
use designation as Mixed-Use.
2-10
PLAN OF STILLWATER
Chapter 2 : Land Use
Redevelopment Opportunities at Retiring
Institutional Sites
In recent years, Stillwater has seen a shift in
institutional uses through closing or relocation.
These changes have resulted in a review of the land
designated as Institutional. As a result, two sites
were evaluated to determine future opportunities
for other uses.
Lakeview Hospital
Over the last 100 years a hospital has been at
Churchill and Greeley Streets, near Lily Lake in
the Holcombe neighborhood (see Figure 2.4). The
current hospital was built in 1961. The 12.5 acre
site has limited opportunities to accommodate
future hospital growth. Accordingly, the hospital is
planning to relocate to the northeast corner of TH 36
and Manning Avenue. Development at that location
will likely consist of a three-story hospital with
an ambulatory (same-day) surgery center, senior
housing, and a medical office building. Planning
for the new hospital and health care campus is
under way, and it is possible that construction on
the new hospital could begin within the next five
to ten years.
It is assumed that at some point the current site will
no longer be utilized as a hospital. Reviewing the
site’s long-term land use is appropriate and should
take into consideration the following:
The feasibility to adapt or reuse the existing
buildings.
The site’s proximity to existing
neighborhoods that include a mix of low to
medium density residential.
The proximity to open space, water and
natural features.
Convenient access to major transportation
corridors (e.g., TH 36 and TH 95).
Based on a review of these elements, the site has
the potential to accommodate residential uses at
a higher density. Accordingly, the site is being
guided for Medium Density Residential. The site
is currently guided for Low/Medium Density
Residential.
Oak Park Elementary School
Oak Park Elementary was one of nine elementary
schools in the Stillwater Public School District
834). In 2016, the School Board voted to close the
elementary school. Students were enrolled in new
schools to accommodate enrollment growth to the
south. Currently the school provides alternative
education models, as well as office space for the
school district.
In the long-term the School District plans to
continue to use the school for education and
office needs. In that respect, the site will continue
to be designated as Low Density Residential (see
Figure 2.4). However, the Comprehensive Plan
should recognize this site as a potential area of
opportunity. At least a portion of the site (11 acres)
may present future opportunities for residential
uses. This is based on a preliminary review of the
site’s attributes:
The site’s proximity to existing
neighborhoods that include a mix of uses
ranging from single-family homes to
townhomes and apartments.
Land use buffers (along Osgood Avenue
and Orleans Street) that are comprised of a
church, day care, funeral home, and office
space.
Adequate walking distances to commercial
and civic uses, such as the Washington
County Government Center and commercial
uses along TH 36.
Available transit service and bus stops along
Osgood Avenue.
Convenient access to major transportation
corridors (e.g., TH 36 and TH 95).
If and when the site no longer meets the School
District’s needs, the site should be considered
for a higher density use (e.g., Medium Density
Residential or High Density Residential). At this
time, the Land Use Plan does not recommend a
land use change.
PLAN OF STILLWATER
Chapter 2 : Land Use 2-11
2030 Land Use Study Areas
The 2030 comprehensive plan identified
opportunity sites for growth in the Land Use Plan.
Since then, a few of those areas remain available to
accommodate future growth identified as part of
this Plan’s time horizon (2040). A brief summary of
each site’s existing conditions are described below.
The future land use for these sites will remain as
they were depicted in the 2030 Land Use Plan.
Site A
Site A is located in the southwest corner of
Stillwater at the intersection of TH 36 and Manning
Avenue (see Figure 2.2). The TH 36 and Manning
Avenue intersection has been programmed for
an interchange in 2022. The NE quadrant of the
interchange will serve as the future site for the
Lakeview Hospital and wellness center. This site
has a number of existing natural features including
wooded areas and wetlands. The area will continue
to be guided for Research and Development Park.
Site B
Site B is located just north of Site A with Manning
Avenue as its western boundary (see Figure 2.3).
Site B contains some wetlands and valuable natural
features and has direct access to Manning Avenue.
The land uses surrounding the site are low to
medium density residential uses. Given this fact, as
well as its proximity to natural features and trail
access, it was determined that the most appropriate
land use for this site was a mixture of medium and
low/medium density residential development.
Figure 2.2: Site A
Figure 2.3: Site B
Off-limits” areas:
Wetlands etc
Wetland buffers
Drainage ways
High value
natural areas
Connections
Figure 2.4: Land Use StudyAreasNEALAVENPARIS
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2-14
PLAN OF STILLWATER
Chapter 2 : Land Use
Site C
Site C is located at the northeast corner of Manning
Avenue and Myrtle Street. The site contains
wetlands and a creek, which could limit the amount
of development onsite. The 2030 Comprehensive
Plan assumed development would be limited
based on environmental constraints, resulting in
the site potentially accommodating 10,000 square
feet of restaurant and 37,000 square feet of retail
see Figure 2.5). After further investigation, it
is assumed the environmental constraints will
not limit development so severely and a larger
development (approximately 58,500 square feet)
could be accommodated (see Figure 2.6).
Given the visible location on a busy intersection,
it was determined that this site should be
guided Neighborhood Commercial to serve
the surrounding residential areas with retail
opportunities. However, the site should be further
evaluated to determine the full extent of possible
wetland impacts and environmental constraints.
Site D
Site D is located near the middle of the City, just
north of CSAH 12/Myrtle Avenue (see Figure 2.7).
Site D contains some significant natural resources,
including wetlands, forested areas and a stream. The
site also has some existing large-lot development,
and therefore any new development will need to be
compatible with surrounding land uses. Since the
2030 Comprehensive Plan, portions of Site D were
developed for the Stillwater Fire Department and
National Guard Readiness Center. This area is now
reflected as Institutional.
Given some of the significant natural features on
the site, it was determined that the western portion
be guided for low-density residential development
to protect as much of the natural area as possible.
The remainder of the site is guided as low/medium
density residential.
Figure 2.5: Site C (2008)
Figure 2.6: Site C (2018)
Figure 2.7: Site D
PLAN OF STILLWATER
Chapter 2 : Land Use 2-15
Site E
Site E is north of CSAH 12/Myrtle and just east of
Manning Avenue (see Figure 2.8). This site contains
significant areas of wetlands and natural areas, and
includes a number of planned trails connecting to
surrounding development. Because of the existing
higher density development adjacent to the site
across 80th Street, the land has been guided for
higher densities near the corner.
Site F
Site F is located just west of Site D (see Figure 2.4).
This site is made up entirely of existing large-lot
residential development. Many of the lots could
be further subdivided; however, the potential for a
subdivision to occur will depend on willing sellers
and the feasibility of extending infrastructure.
Therefore, City of Stillwater is undertaking a study
to consider changes to its Zoning Ordinance and City
Code regarding appropriate zoning regulations for
the Minar Neighborhood (see Figure 2.9). As part
of this effort, the City Council passed a moratorium
on subdividing property in the neighborhood The
moratorium is set to expire in October of 2019.
The City does not anticipate new development to
occur in the near future. The Future Land Use Plan
has recognized the existing land use patterns and
density until further analysis is completed.
Site G
In recent years, development interests along the
Highway 36 corridor have increased, particularly
at the Manning Avenue intersection. This area
has become more attractive from a development
perspective considering the proposed interchange
and the Lakeview Hospital’s plans to relocate to the
northeast quadrant.
The growing demand for development in this
area has presented the City of Stillwater a unique
opportunity to extend city services (sewer and
water) to accommodate development interests,
particularly in the southeast quadrant (see Figure
2.4). In that respect, the Comprehensive Plan
assumes this area will be annexed in the near
future. To help prepare for potential annexation,
Figure 2.8: Site E
Figure 2.9: Site F
ORDINANCE 1114
AN INTERIM ORDINANCE PROHIBITING SUBDIVISION OF LOTS
IN SPRINGCREEK AND BOUTWELL VALLEY ESTATES
WHEREAS, many cities adopt interim ordinances or regulations on aspects of planning
and zoning regulations to consider the impacts of certain uses and development patterns and to
determine whether the regulations surrounding such uses and patterns are appropriate in order to
protect the public health, safety and welfare of their citizens; and
WHEREAS, the City of Stillwater is undertaking a study to consider changes to its Zoning
Ordinance and City Code regarding appropriate zoning regulations for the Minar Neighborhood.
NOW, THEREFORE, pursuant to Minnesota Statutes, Section 462.355 subdivision 4, the
City Council of Stillwater does ordain:
SECTION 1. No applications or authorizations related to subdividing or rezoning lots in the
Minar Neighborhood (Minar Neighborhood is shown as the shaded area in the map below) shall
be accepted, considered, approved, authorized or consented to for twelve (12) months from the
effective date of this ordinance or until the City Council rescinds this ordinance, whichever occurs
first.
The Minar Neighborhood
2-16
PLAN OF STILLWATER
Chapter 2 : Land Use
the Comprehensive Plan recognizes this area as
future Highway Mixed Use. This future land use
designation is consistent with the Plan’s vision
for the corridor. More information regarding this
vision can be found on page 2.23.
The City does not anticipate Site G to influence its
socioeconomic forecasts if annexed and developed.
The Comprehensive Plan has assumed a certain
level of development will occur along the corridor
within the next twenty years (see Table 2.5). The City
will continue to monitor development along the
corridor and its potential impact to socioeconomic
forecasts.
Future Land Use Plan
The City of Stillwater has developed a Land Use
Plan that aligns with the socioeconomic forecasts
prescribed by the Metropolitan Council (see Table
2.2). This Land Use Plan also responds to the trends
and challenges the community will face and is
designed to meet the goals, objectives and policies
in this plan. Furthermore, the Future Land Use
Plan is intended to balance residential and non-
residential growth. It is important to provide high
quality residential areas as well as high quality
employment, shopping and service options.
Finally, Stillwater is a community that focuses on
Table 2.2:Future Land Use
Future Land Use
2030
Planned
Land Use
acres)
2040
Planned
Land Use
acres) *
Change
in Acres
Very Low Density
Residential
0.00 118.06 118.06
Low Density
Residential
1,532.98 1,382.48 -150.50
Low/Medium
Density
Residential
937.88 883.87 -54.02
Medium Density
Residential
143.00 155.63 12.63
High Density
Residential
72.32 72.32 0.00
Neighborhood
Commercial
8.17 22.91 14.74
Community
Commercial
160.70 24.18 -136.52
Highway Mixed
Use
0.00 136.53 136.53
Downtown Mixed
Use
45.46 44.85 -0.60
Industrial 105.47 105.47 0.00
Research,
Development Park
84.59 82.99 -1.60
Institutional 101.79 124.71 22.92
Park, Rec or Open
Space
770.77 824.15 53.39
Marina 15.79 15.90 0.11
Open Water/
Wetlands
956.74 955.06 -1.67
ROW 885.65 872.18 -13.48
Total:5,821.30 5,821.30 0.00
The total number of acres have changed since the 2030 Comprehensive Plan.
The change in total is a result of updated parcel records and Geographical
Information System (GIS) data.
Figure 2.10: Site G LongLake
Source: Esri, DigitalGlobe, GeoEye, Earthstar Geographics, CNES/AirbusDS, USDA, USGS, AeroGRID, IGN, and theGISUserCommunity
0 380760190
Feet
Future Lakeview
Hospital Site
Potential Site
for Annexation
Highway36Manning
Avenuethe wellbeing of its residents and therefore places
a high value on a well-developed system of parks,
trails, recreation, and open spaces.
The areas of change discussed in the previous
section are reflected in the 2040 Future Land Use
Plan (see Figure 2.11). Table 2.2 highlights the
changes in future land uses between the 2030 and
2040 Comprehensive Plan.
PLAN OF STILLWATER
Chapter 2 : Land Use 2-17
Land Use Plan Category Definitions
As part of this plan, changes to the commercial land
use categories were made in order to both clarify
and better-reflect future land use designations. A
large part of this change is a result of introducing
mixed-use development along TH 36, which in
turn presented opportunities to better clarify the
remaining commercial uses located throughout the
community.
Overall, the 2040 Future Land Use Plan contains
a range of categories that address residential,
commercial, office and public uses. These land uses
are described on the next page.
Very Low Density Residential (VLDR)
This land use designation is a new category,
which was created to preserve a well-established
neighborhood (2.5 acre lots) developed in the late
1980s prior to being annexed into the city limits.
This area is not anticipated to redevelop during the
life of this plan, and reflects a density range of 0.25
to 1 unit per acre.
Low Density Residential (LDR)
This designation provides a range of lower density
residential opportunities at 1 to 4.4 units per acre.
LDR is the largest category in the city with 1,527
acres. It is the predominant land use type in western
Stillwater. Single family homes are the main use
found in the LDR category. Other uses that relate
well to single family homes are permitted including
parks, playgrounds, churches and schools. Much of
the LDR category is already fully developed.
Low/Medium Density Residential (LMDR)
This designation provides a broad range of low and
medium density residential opportunities and is
the second largest in terms of acres (920), excluding
right-of-way and open waters/wetlands. LMDR
guided areas will develop at 5 to 9.7 units per acre.
This designation has been applied to all the existing
residential areas in the historic neighborhoods
of the city as it best reflects the density at which
development has occurred in these traditional
neighborhoods.
Low Density Residential Example
Low/Medium Density Residential Example
Very Low Density Residential Example
2-18
PLAN OF STILLWATER
Chapter 2 : Land Use
Medium Density Residential Example
In addition, many of the remaining vacant parcels
in western Stillwater have been guided LMDR
as a way to provide the most flexibility in new
neighborhood design and in promoting increased
density.
Medium Density Residential (MDR)
This designation provides for a density of 6 to 14.5
units per acre. Typical uses include townhomes and
small scale apartment buildings. This designation
is also used in areas of western Stillwater along
Manning Avenue and for sites adjacent to existing
medium density housing to provide sites for new
townhomes (or housing types of similar styles and
densities) as well as areas for affordable housing.
High Density Residential (HDR)
This designation is characterized by developments
with much higher densities and includes areas
where apartments and condominiums are located.
This classification provides for a density of 12 to
25 units per acre. Higher densities may be allowed
through the Planned Unit Development (PUD)
process. This process should take into consideration
how the development is designed and situated
on the site, and how it relates to and impacts
surrounding properties and city infrastructure.
Neighborhood Commercial (NC)
The Neighborhood Commercial land use
designation provides the opportunity for retail
goods and services that directly cater to a limited
geographic area or neighborhood in Stillwater.
The intent of this category is twofold. One is
to preserve historical neighborhood nodes that
offer neighborhood residents commercial goods
and services on a frequent basis. For example,
neighborhood uses may include a convenience
store, coffee shop, drug store, or hardware store.
In some cases, the existing buildings that provides a
neighborhood commercial use is non-conforming.
The City will strive to preserve these uses and
determine the appropriate uses over time to ensure
they do not negatively impact the neighborhood.
The type of neighborhood commercial would
High Density Residential Example
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Limit Future Land
Use Very
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Residential Neighborhood Commercial Community Commercial
Downtown
Mixed
Use Business
Park/
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Institutional Research, Development Park Park,
Rec
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PLAN OF STILLWATER
Chapter 2 : Land Use 2-21
2-22
PLAN OF STILLWATER
Chapter 2 : Land Use
consist of uses that fit within the historical character
and scale of a residential neighborhood and should
be accessible by foot and bicycle.
The second category of neighborhood commercial
is intended for Planned Unit Developments
PUD) that combine residential and neighborhood
commercial uses in a walkable arrangement. An
example of this type of development includes the
Liberty on the Lakes” located at the intersection of
County Road 15 and County Road 12.
These types of uses would typically range in a gross
leasable area between 20,000 and 125,000 square
feet and a Floor Area Ratio of 0.25 to 0.50. In some
case, the gross leasable area may be smaller in size
when located in the older parts of the community.
Community Commercial (CC)
Community Commercial accommodates a wide
variety of retail goods and services that are more
intense than neighborhood scale commercial.
Community commercial uses are intended to serve
residents of Stillwater and the immediate vicinity
around Stillwater.
These areas typically include a total gross leasable
area of 125,000 to 400,000 square feet that provide
goods and services for a 3 to 6 mile trade area
radius. Community Commercial centers often have
two or more anchor tenants, which could include
a discount store or supermarket. However, the
limited areas for Community Commercial may
reflect smaller footprints (e.g., total gross leasable
areas of 20,000 to 125,000 square feet) that include
convenience stores, restaurants and specialty stores.
The Floor Area Ratio for Community Commercial
may range from 0.25 to 0.50.
Areas with this designation are typically situated
along major transportation corridors (e.g.,
Highway 5), providing important access to goods
and services. In addition to providing convenient
access to retail goods for residents, providing small
areas of commercial development throughout the
city will reduce stress on the city’s transportation
system by limiting trip lengths for the purchase of
retail goods and services.
Neighborhood Commercial Example
Community Commercial Example
Disclaimer: Please note that the Floor Area
Ratios (FARs) are used for planning purposes
and to address Metropolitan Council
requirements. The FARs should not be used to
dictate the size of development. Instead, the
City’s Zoning Code should be referenced to
determine the size of development. The City’s
Zoning Code is the official document that
prescribes the size of development.
PLAN OF STILLWATER
Chapter 2 : Land Use 2-23
Highway Mixed Use (HMU)
Highway Mixed Use is a new land use category
in the 2040 Comprehensive Plan. This category
reguides portions of the TH 36 corridor from
Community Commercial to Mixed Use, providing
for more flexibility to accommodate residential
development in a mixed-use fashion.
The existing commercial uses are still supported
under this land use category; however, as the area
redevelops over time, it is expected to include a mix
of residential (30%) and commercial uses (70%).
Typical building size in this category ranges from
20,000 to 100,000 square feet and Floor Area Ratio
ranges from 0.25 to 1.00. Buildings may range from
1 to 4 stories in height, and residential components
may range from 12 to 25 units per acre; with increases
allowable through the Planned Unit Development
process. Typical projects may encompass 3 to 5
acres of land, and serve trade areas up to 3 miles
in radius, including surrounding neighborhoods. A
central point to this type of development is a central
public space, green space, or plaza type gathering
place.
Over time, the corridor could evolve into larger
mixed-use developments that reflect a town
center. A mixed-use town center includes larger
concentrations of various combinations of different
land uses, with typical projects in excess of 250,000
square feet and Floor Area Ratios potentially
exceeding 2.0. A town center typically encompasses
more than 20 acres of land, and draws from a trade
area of 5 to 15 miles in radius, drawing from beyond
Stillwater and serving adjacent communities in
the suburbs as well. Furthermore, town centers
typically include a civic anchor, as well as a variety of
recreational, retail, service, housing, entertainment,
and office components. A potential civic anchor
could be a community center or pool, which was
identified by residents during the comprehensive
planning process as a desired amenity.
As this area develops over time, it should also
prioritize an attractive frontage along TH 36,
while creating more of an urban environment
with a variety of public spaces and pedestrian
friendly streets. Development should also enhance
Mixed Use Village or Town Center Precedent Examples
2-24
PLAN OF STILLWATER
Chapter 2 : Land Use
the pedestrian environment and be planned to
accommodate transit users. This will help support
a growing demand for transit service in the area.
Downtown Mixed Use (DMU)
Historically the downtown area has been guided
for commercial land uses, but the Mixed Use label
is being used in the 2040 Land Use Plan because
it more accurately reflects the evolving nature of
the area. Stillwater’s downtown offers both the
community and the region a vibrant, mixed use
center. The range of uses includes residential, retail
shops, restaurants, offices and other commercial
uses. Redevelopment sites are expected to include
a mix of residential (30%) and commercial uses
70%).
The Downtown Mixed Use category may range from
100,000 to 500,000 square feet in size and Floor Area
Ratio may range from 0.25 to 2.00. Buildings may
range from 1 to 4 stories in height and residential
components may range from 25 to 50 units per acre,
with increases allowable through the Planned Unit
Development process. Projects should incorporate
more of an urban environment, with a variety of
public spaces and pedestrian-friendly streets.
Business Park/Industrial (BPI)
This designation provides for traditional industrial,
limited manufacturing and processing of products.
Areas with these land use designations are located
north of TH 36, south of Orleans Street, and east of
County Road 5. Floor Area Ratios range from 0.25
to 0.5 and structures in this BPI typology may range
from 1 to 3 stories in height. Proximity to regional
road corridors is a critical factor in locating these
areas.
Research & Development Park (RDP)
This designation is located at the northeast corner
of the intersection of Manning Avenue and TH 36.
This important area contains 84 acres and serves
as the city’s last remaining large parcel to attract a
major employer. The city has created this specific
land use designation to provide a site for a corporate
center, research facility, educational institution,
Downtown Mixed Use Example
Business Park/Industrial Examples
PLAN OF STILLWATER
Chapter 2 : Land Use 2-25
medical campus or office campus that will bring
not only a well-designed development, but head-
of-household caliber jobs to the community.
The typical project size in the Research and
Development Park category ranges from 15,000
to 100,000 square feet. Office buildings may have
Floor Area Ratios of 0.25 to over 1.0, and may range
from 1 to 6 stories in height. Proximity to major
road corridors is an important locational factor.
This land use category also provides flexibility to
integrate senior housing (e.g., independent living,
assisted care, memory care or nursing home) that
complements existing or proposed uses within
the Research & Development Park. These types
of uses may include a hospital, medical facility or
pharmacy.
Institutional (INST)
This designation includes all public uses such
as city and county buildings, hospitals, and
cemeteries. It does not generally include schools
and churches as in the 1995 plan. These uses have
now been guided according to their surrounding
residential neighborhood and are allowed as either
a permitted use or specially permitted use according
to the respective residential zoning district within
which the church or school currently finds itself.
This change was made so that if a school or church
were to close or vacate, the future land use of the
property would become residential.
Research & Development Park Example
Park, Recreation or Open Space (PROS)
This designation is for park, recreation and open
space related land uses. This new category includes
all current and future public and private parks,
trail areas, active recreation facilities, golf courses,
marinas, islands, ravines and bluffs. There are
877 acres of land in this PR category. A detailed
discussion on parks is contained in Chapter 8,
Parks and Trails.
Open Water (WA)
This classification includes open water areas such
as lakes, rivers, ponds and open water wetlands.
Right-of-Way (ROW)
This classification reflects the location of public
right-of-way within the city.
PROS Example
2-26
PLAN OF STILLWATER
Chapter 2 : Land Use
Growth and Future Land Use
Development and redevelopment within the
potential areas of change will be market-driven.
The land use designations are intended to allow
for flexibility in how these sites transform over the
next twenty years. Predicting when redevelopment
will occur over this time horizon is difficult.
Redevelopment (phasing) will depend on when
the market supports new uses and property-
owners’ willingness to sell. Regardless of these
factors, the potential areas of change have been
largely guided for higher densities and mixed-use
to provide flexibility and enough land capacity to
help accommodate portions of the City’s projected
socioeconomic forecasts (see Table 2.3).
Other areas of the community have the potential
for absorbing the community’s projected growth
at lower densities. Some of these areas include
undeveloped land in the western portion of the
communities (see Figure 2.4). Other sites may
include infill opportunities within neighborhoods,
as well as underutilized parts of larger sites that
could be subdivided.
One of the purposes of the Future Land Use Plan is to
ensure that planned land uses can meet the growth
projections of the city. For the purposes of this
Comprehensive Plan, the City assumes a majority,
if not all of the growth, will occur on undeveloped
land in the western part of the community and
within the potential areas of change (i.e., TH 36
corridor, Lakeview Hospital, and redevelopment in
downtown). The assumed areas for growth would
result in an average density of 6.88 units per acre
see Table 2.4), which exceeds the required target
of 5 units per acre for a “Suburban Community.” It
is important to recognize the Metropolitan Council
has directed the City of Stillwater to not include
land uses guided as Low Density Residential in
the 2030 Comprehensive Plan (which includes land
in the 2040 Comprehensive Plan that is guided
as Very Low Density Residential) as part of these
calculations. Please see Appendix C for more
information.
Planning for Growth by Ten Year Time Horizons
The City has evaluated the potential areas of
change and vacant and underutilized sites within
the city to determine their ability to accommodate
the City’s growth projections. Figure 2.4 illustrates
the location and their respected Future Land Use
designations. As a result, there is approximately
150 net acres available to accommodate the City’s
housing projections (see Table 2.5). It is probable
that future (re)development will occur at higher
densities than shown in Table 2.5, due to increasing
costs of construction and higher land costs for
redevelopment sites. Based on this assumption,
the City will have enough land capacity to
accommodate the City’s housing projections.
In addition to the housing projections, there is
about 175 net acres (7.6 million square feet) of
vacant land or areas of change to accommodate
the City’s employment forecasts (see Table 2.6).
The majority, if not all of the City’s employment
projections, will be met in redeveloping areas along
major transportation corridors (e.g., TH 5 and TH
36) and in Downtown Stillwater.
Ultimately, future development/redevelopment
will depend on the plans and aspiration of the
private property owner. Table 2.5 and Table 2.6
do not represent approval of land use or actual
development plans, but represent ideas for possible
redevelopment activity. In that respect, Table 2.5
and Table 2.6 should be viewed as visuals that
demonstrate land use potential and the ability to
meet the City’s housing and job growth projections.
PLAN OF STILLWATER
Chapter 2 : Land Use 2-27
Table 2.3:Historic and Projected Growth
Table 2.4:Stillwater Net Density Calculations
Land Use Total Acres
Percent
of Acres
Guided for
Residential
Total Acres
Allocated for
Residential
Min Units Per
Acre Total Units
Low Density Residential 4.13 100%4.13 4 4
Low/Medium Density Residential 65.42 100%57.07 4.4 251
Medium Density Residential 51.12 100%51.12 6 307
High Density Residential 0.00 100% 0 12 0
Highway Mixed Use (TH 36 Corridor)136.53 30%40.96 12 492
Downtown Mixed Use
Redevelopment)
4.84 30%1.45 25 36
Total:262.04 - 163.08 - 1,122
Units Per Acre:6.88
2-28
PLAN OF STILLWATER
Chapter 2 : Land Use
Table 2.5:Projected Growth Assumptions By Phase - Housing
Growth Areas
Net
Developable
Acres *
Percent
Residential
Net
Developable
Acres *
Residential)Density Range Phasing of Net Developable Acres Number of Housing Units (Min) **Number of Housing Units (Max) **
Highway 36 Mixed Use Acres Percent Acres Min Max 2020 2030 2040 2020 2030 2040 2020 2030 2040
Mixed Use 136.53 30%40.96 12 25 0%35%25%0 172 295 0 358 614
Lakeview Hospital (existing site)Acres Percent Min Max 2020 2030 2040 2020 2030 2040 2020 2030 2040
Medium Density Residential 12.63 100%12.63 6 14.5 20%30%50%15 38 76 37 92 183
Downtown Redevelopment Acres Percent Acres Min Max 2020 2030 2040 2020 2030 2040 2020 2030 2040
Mixed Use 4.84 30%1.45 25 50 0%100%0%0 36 36 0 73 73
Site A Acres Percent Acres Min Max 2020 2030 2040 2020 2030 2040 2020 2030 2040
Research, Development Park 66.52 0%0.00 0 0 70%20%10%0 0 0 0 0 0
Site B Acres Percent Acres Min Max 2020 2030 2040 2020 2030 2040 2020 2030 2040
Low/Medium Density Residential 15.46 100%15.46 5 9.7 50%50%0%39 77 77 75 150 150
Medium Density Residential 11.90 100%11.90 6 14.5 50%50%0%36 71 71 86 173 173
Site C Acres Percent Acres Min Max 2020 2030 2040 2020 2030 2040 2020 2030 2040
Neighborhood Commercial 9.78 0%0.00 0 0 25%25%50%0 0 0 0 0 0
Site D Acres Percent Min Max 2020 2030 2040 2020 2030 2040 2020 2030 2040
Low Density Residential 21.99 100%21.99 1 4.4 25%25%50%5 11 22 24 48 97
Low/Medium Density Residential 21.15 100%21.15 5 9.7 50%25%25%53 79 106 103 154 205
Site E Acres Percent Acres Min Max 2020 2030 2040 2020 2030 2040 2020 2030 2040
Low/Medium Density Residential 20.46 100%20.46 5 9.7 70%30%0%72 102 102 139 198 198
Medium Density Residential 25.65 100%25.65 6 14.5 70%30%0%108 154 154 260 372 372
Site F Acres Percent Acres Min Max 2020 2030 2040 2020 2030 2040 2020 2030 2040
Very Low Density Residential 118.73 100%118.73 0.3 1 0%0%0%0 0 0 0 0 0
Vacant Land Acres Percent Acres Min Max 2020 2030 2040 2020 2030 2040 2020 2030 2040
Low Density Residential 4.13 100%4.13 0.3 1 30%40%30%0 1 1 1 3 4
Low/Medium Density Residential 8.35 100%8.35 5 9.7 30%40%30%13 29 42 24 57 81
Medium Density Residential 0.94 100%0.94 6 14.5 100%0%0%6 6 6 14 14 14
Total 479.07 -303.81 -----346 777 988 763 1,691 2,164
Met Council Growth Projections (Net): ***640 1,240 1,840 640 1,240 1,840
Differential:-294 -463 -852 123 451 324
The net developable acres exclude wetlands and right-of-way.
The total number of units projected in a time horizon (i.e., 2020, 2030 and 2040) is cumulative from the previous time bin.
The growth projection determined for 2020 was determined by using the difference between 2017 Census housing estimates (7,760 housing
units).
PLAN OF STILLWATER
Chapter 2 : Land Use 2-29
Table2.5:ProjectedGrowthAssumptionsByPhase - Housing
GrowthAreas
Net
Developable
Acres *
Percent
Residential
Net
Developable
Acres *
Residential)DensityRange Phasing of Net Developable Acres Number of Housing Units (Min) **Number of Housing Units (Max) **
Highway36MixedUseAcresPercentAcresMinMax 2020 2030 2040 2020 2030 2040 2020 2030 2040
MixedUse136.5330%40.961225 0%35%25%0 172 295 0 358 614
LakeviewHospital (existingsite)AcresPercentMinMax 2020 2030 2040 2020 2030 2040 2020 2030 2040
MediumDensityResidential12.63100%12.63614.5 20%30%50%15 38 76 37 92 183
DowntownRedevelopmentAcresPercentAcresMinMax 2020 2030 2040 2020 2030 2040 2020 2030 2040
MixedUse4.8430%1.452550 0%100%0%0 36 36 0 73 73
SiteAAcresPercentAcresMinMax 2020 2030 2040 2020 2030 2040 2020 2030 2040
Research, DevelopmentPark66.520%0.0000 70%20%10%0 0 0 0 0 0
SiteBAcresPercentAcresMinMax 2020 2030 2040 2020 2030 2040 2020 2030 2040
Low/MediumDensityResidential15.46100%15.4659.7 50%50%0%39 77 77 75 150 150
MediumDensityResidential11.90100%11.90614.5 50%50%0%36 71 71 86 173 173
SiteCAcresPercentAcresMinMax 2020 2030 2040 2020 2030 2040 2020 2030 2040
NeighborhoodCommercial9.780%0.0000 25%25%50%0 0 0 0 0 0
SiteDAcresPercentMinMax 2020 2030 2040 2020 2030 2040 2020 2030 2040
LowDensityResidential21.99100%21.9914.4 25%25%50%5 11 22 24 48 97
Low/MediumDensityResidential21.15100%21.1559.7 50%25%25%53 79 106 103 154 205
SiteEAcresPercentAcresMinMax 2020 2030 2040 2020 2030 2040 2020 2030 2040
Low/MediumDensityResidential20.46100%20.4659.7 70%30%0%72 102 102 139 198 198
MediumDensityResidential25.65100%25.65614.5 70%30%0%108 154 154 260 372 372
SiteFAcresPercentAcresMinMax 2020 2030 2040 2020 2030 2040 2020 2030 2040
VeryLowDensityResidential118.73100%118.730.31 0%0%0%0 0 0 0 0 0
VacantLandAcresPercentAcresMinMax 2020 2030 2040 2020 2030 2040 2020 2030 2040
LowDensityResidential4.13100%4.130.31 30%40%30%0 1 1 1 3 4
Low/MediumDensityResidential8.35100%8.3559.7 30%40%30%13 29 42 24 57 81
MediumDensityResidential0.94100%0.94614.5 100%0%0%6 6 6 14 14 14
Total479.07-303.81-----346 777 988 763 1,691 2,164
Met Council Growth Projections (Net): ***640 1,240 1,840 640 1,240 1,840
Differential:-294 -463 -852 123 451 324
Thenetdevelopableacresexcludewetlandsandright-of-way.
Thetotalnumberofunitsprojectedinatimehorizon (i.e., 2020, 2030 and2040) iscumulativefromtheprevioustimebin.
Thegrowthprojectiondeterminedfor2020wasdeterminedbyusingthedifferencebetween2017Censushousingestimates (7,760housing
units).
2-30
PLAN OF STILLWATER
Chapter 2 : Land Use
Table 2.6:Projected Growth Assumptions By Phase - Employment
Growth Areas
Net
Developable
Acres *
Percent
Employment
Net
Developable
Sq.Ft.FAR
Emply. Per
sq.ft.Phasing of Net Developable Acres Number of Jobs (Min) **Number of Jobs (Max) **
Highway 36 Mixed Use Acres Percent sq.ft.Min Max sq.ft.2020 2030 2040 2020 2030 2040 2020 2030 2040
Mixed Use 136.53 70%4,163,058 0.25 0.5 1,000 0%35%25%0 364 624 0 729 1,249
Downtown
Redevelopment Acres Percent sq.ft.Min Max sq.ft.2020 2030 2040 2020 2030 2040 2020 2030 2040
Mixed Use 4.84 70%147,631 0.5 2 1,000 0%100%0%0 74 74 0 295 295
Site A Acres Percent sq.ft.Min Max sq.ft.2020 2030 2040 2020 2030 2040 2020 2030 2040
Research, Development
Park 66.52 100%2,897,766 0.25 1 1,000 70%20%10%507 652 724 2,028 2,608 2,898
Site C Acres Percent sq.ft.Min Max sq.ft.2020 2030 2040 2020 2030 2040 2020 2030 2040
Neighborhood
Commercial 9.78 100%426,023 0.25 0.5 1,000 25%25%50%27 53 107 53 107 213
Total 217.67 - 7,634,478 - - - - - - 534 1,143 1,529 2,082 3,738 4,655
Met Council Growth Projections (Net): ***600 1,200 1,600 600 1,200 1,600
Differential:-66 -57 -71 1,482 2,538 3,055
The net developable acres exclude wetlands and right-of-way.
The total number of jobs projected in a time horizon (i.e., 2020, 2030 and 2040) is cumulative from the previous time bin.
The growth projection determined for 2020 was determined by using 2017 Census job estimates (10,100 jobs).
Disclaimer: Table 2.6 was created to
demonstrate the City’s ability to accommodate
the socioeconomic forecasts generated by the
Metropolitan Council. Please note that the
Floor Area Ratios (FARs) used for this planning
exercise should not be used to dictate the size
of development. Instead, the City’s Zoning
Code should be referenced to determine the
size of development. The City’s Zoning Code is
the official document that prescribes the size of
development.
PLAN OF STILLWATER
Chapter 2 : Land Use 2-31
Table2.6:ProjectedGrowthAssumptionsByPhase - Employment
GrowthAreas
Net
Developable
Acres *
Percent
Employment
Net
Developable
Sq.Ft.FAR
Emply. Per
sq.ft.Phasing of Net Developable Acres Number of Jobs (Min) **Number of Jobs (Max) **
Highway36MixedUseAcresPercentsq.ft.MinMaxsq.ft.2020 2030 2040 2020 2030 2040 2020 2030 2040
MixedUse136.5370%4,163,0580.250.51,000 0%35%25%0 364 624 0 729 1,249
DowntownRedevelopmentAcresPercentsq.ft.MinMaxsq.ft.2020 2030 2040 2020 2030 2040 2020 2030 2040
MixedUse4.8470%147,6310.521,000 0%100%0%0 74 74 0 295 295
SiteAAcresPercentsq.ft.MinMaxsq.ft.2020 2030 2040 2020 2030 2040 2020 2030 2040
Research, Development
Park66.52100%2,897,7660.2511,000 70%20%10%507 652 724 2,028 2,608 2,898
SiteCAcresPercentsq.ft.MinMaxsq.ft.2020 2030 2040 2020 2030 2040 2020 2030 2040
NeighborhoodCommercial9.78100%426,0230.250.51,000 25%25%50%27 53 107 53 107 213
Total217.67 - 7,634,478 - - - - - - 534 1,143 1,529 2,082 3,738 4,655
Met Council Growth Projections (Net): ***600 1,200 1,600 600 1,200 1,600
Differential:-66 -57 -71 1,482 2,538 3,055
Thenetdevelopableacresexcludewetlandsandright-of-way.
Thetotalnumberofjobsprojectedinatimehorizon (i.e., 2020, 2030and2040) iscumulativefromtheprevioustimebin.
Thegrowthprojectiondeterminedfor2020wasdeterminedbyusing2017Censusjobestimates (10,100jobs).
2-32
PLAN OF STILLWATER
Chapter 2 : Land Use
Protecting Special Resources
As required by state statute, a municipality’s
comprehensive plan must include strategies
for protection of special resources, including
solar access, historic preservation and aggregate
resources. These strategies are discussed below.
Natural Resources
The protection of natural resources has been an
important effort in Stillwater as it has developed
in the recent past and now as it approaches full
development. The City has an abundance of
natural resources including the St. Croix River,
lakes, creeks, and open space/wooded areas.
During several public participation efforts during
the Comprehensive Plan process, residents and
the Advisory Committee expressed a strong
connection to the resources that exist in the city
and cite these as important reasons for living in
Stillwater. Residents also expressed interest in
seeing increased opportunities to have access
through trails to these resources.
Residents are also concerned about the water
quality of the city’s lakes and streams and desire
to see the City put efforts into their improvement
and protection. Some of the comments, particularly
regarding new residential growth in western
Stillwater, related to ensuring that with growth any
existing natural areas be retained. This includes
trees, wetlands, upland forests, streams and
grass/prairie lands. The growth analysis process
for vacant and underdeveloped land in western
Stillwater was sensitive to this desire.
Environmental protection strategies are an
important tool in the protection of natural resources.
This is discussed in more detail in Chapter 3
Natural Resources. However, it is important to
make a strong connection between natural resource
preservation and land use. The City has several
tools available to help protect natural areas, while
also providing for new growth and redevelopment.
Some of these are ordinance provisions that are
already in place and that could be reviewed and
updated as needed.
Solar Access
Minnesota Statutes require an element for the
protection and development of access to direct
sunlight for solar energy systems. The purpose of
this legislation is to prevent solar collectors from
being shaded by adjacent structures or vegetation
and to ensure that development decisions do not
preclude the possible future development and
use of solar energy systems. This requirement is
addressed in further detail in Appendix B.
To ensure the availability of solar access, the City of
Stillwater will, whenever possible, protect access to
direct sunlight for solar energy systems on principle
structures. Stillwater will consider solar access in
the review of site plans and planning decisions.
Aggregate Resources
The Metropolitan Council requires cities to identify
the location of aggregate resources within the
community based on the Minnesota Geological
survey within the Comprehensive Plan. A few areas
of aggregate resources were identified in Stillwater
along the eastern edge of the city as shown on
Figure 2.12: Aggregate Resources”.
A large proportion of the aggregate resources
located in the City of Stillwater are located in the
Lower St. Croix National Scenic Riverway District.
Minnesota DNR rules section 6105.0370 subpart
9 and Stillwater Ordinances prohibit aggregate
mining in the Lower St. Croix National Scenic
Riverway District.
Historic Preservation
Historic preservation is a core value to the City
of Stillwater, and Chapter 5 Historic Resources is
devoted to discussing the city’s unique resources
and preservation efforts.
Figure 2.12: AggregateResourcesNEALAVENPARIS
AVE NGREELEYSTSOSGOOD AVE NCROIXWOODBLVD WASHINGTONAVECURV E C
RES TBLVDW60THSTNSTILLWATERBLVDN
OWENS ST NO
RLEANS ST W PINE ST W 2ND
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AVE
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SSAINTCROIXTRL
N
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T
O N E
B R I
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T R L
N WILKINS ST
W MCKUSICK RD
N OLIVE ST
W MYRTLE ST
W ORLEANS ST E CHURCHILLST
W DELLWOOD RD
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LAUREL
ST
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P
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T
EMANNINGAVEN
62ND ST N NORELLAVENFAIRY
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21 15 66 122324
5
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5 ¬«11 36
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PLAN OF STILLWATER
Chapter 2 : Land Use 2-35
Appendix C: Metropolitan Council System Statement Letter
2-36
PLAN OF STILLWATER
Chapter 2 : Land Use
PAGE 1 of 1
MEMORANDUM
Date: February 11, 2019
To: Ken Roberts, Planning Director Re: City of Stillwater
Cc: Kristina Handt, City Administrator 2040 Comprehensive Plan
From: Jack Griffin, P.E., City Engineer
Engineering has completed a brief review of the City of Stillwater 2040 Comprehensive Plan. A summary of key
elements of the plan are outlined below that may potentially impact Lake Elmo.
SITE G. The southeast quadrant of TH36 and CSAH 15 is identified as a land use study area, Site G, in the Stillwater
2040 Comprehensive Plan Land Use Chapter. The area is shown to be potentially zoned Highway Mixed Use. This
zoning would allow for 70% commercial and 30% residential development. The residential portion could consist of
12‐25 units per acre and buildings between 1‐4 stories high. Page 2‐15 of the plan addresses Site G specifically.
“The growing demand for development in the area has presented the City of Stillwater a unique opportunity to
extend city services (sewer and water) to accommodate development interests, particularly in the southeast
quadrant (see Figure 2.4). In that respect, the Comprehensive Plan assumes this area will be annexed in the near
future”.
Beyond this statement the Comprehensive Plan is silent in regard to the extension of sewer and water utilities to
serve this area and the Capital Improvement Plan was not available for review to determine whether water/sewer
utility extensions have been identified in the CIP for Site G. The Transportation Chapter identifies the new
interchange at TH36 and Manning as a programmed improvement that has already been identified in the City’s or
County’s Capital Improvement Program (Figure 9.7) and identifies the County and the City of Stillwater as the lead
agencies. There is no mention or discussion regarding Manning Avenue jurisdictional issues or improvements for
the segment south of TH36 leading to Site G.
It appears that Site G has only been identified as a potential annexation area and future land use study area and is
therefore not otherwise included in the 2040 Comprehensive Plan. This appears to mean that the City of Stillwater
will be addressing this area in the future rather than as part of the Comprehensive Plan update.
RECOMMENDATIONS.
1. A roadway ownership, cost sharing and maintenance responsibility agreement should be developed with
Stillwater Township/City of Stillwater for Manning Avenue, south of TH36. The attached County GIS map
shows the current Lake Elmo City limits relative to Manning Avenue. As the TH36‐Manning Interchange
project goes forward and the southeast quadrant of the intersection develops there will be significant
costs implications going forward. Figure 8 in the Stillwater Transportation Chapter shows the TAZ zone
number for Site G as 2355. The City should request the proposed traffic volume data that was assumed
for this area.
2. The City of Lake Elmo either provides, or can ready provide, municipal water services to the areas of Lake
Elmo immediately adjacent to Site G. However, sanitary sewer service is not readily available to serve
these areas. Since these areas reside outside Lake Elmo’s planned MUSA boundaries there have been no
plans developed for brining municipal sanitary sewer to the area.
FOCUS ENGINEERING, inc.
Cara Geheren, P.E. 651.300.4261
Jack Griffin, P.E. 651.300.4264
Ryan Stempski, P.E. 651.300.4267
Chad Isakson, P.E. 651.300.4285
Figure 2.4: Land Use StudyAreasNEALAVENPARIS
AVE NGREELEYSTSOSGOODAVENCROIXWOODBLVD STILLWATERBLVDNWASHINGTONAVECUR V E C RES T
BLVD W 60TH
ST N OWENS ST
NO RLEANS ST
W OAKGREENAVENPINE ST W 2NDST NBROADWAY
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City Limit Legend
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Low Density Residential
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Figure 9.8: Transportation
Analysis Zones
Figure 9.7: Programmed and
Planned Roadway Projects
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