HomeMy WebLinkAbout2.a. Land Use Discussion of GlenRose SiteI
CITY OF ROSEMOUNT
EXECUTIVE SUMMARY FOR ACTION
Work Session Meeting Date: October 28, 2004
AGENDA ITEM: Land Use Discussion of GlenRose Site
AGENDA SECTION:
Discussion
PREPARED BY: Kim Lindquist, Community Development
AG O
Director
2
ATTACHMENTS: September 15, 2004 City Council
Minutes and Memo and associated
APPROVED BY:
attachments
RECOMMENDED ACTION: Provide Staff Direction
ACTION:
ISSUE
At the August 17 City Council meeting the GlenRose of Rosemount project was before the
Council for deliberation on a Comprehensive Plan Amendment and Concept Plan Approval
for a residential townhome project. Given the change in land use proposed, Councilmembers
requested discussion at the following work session, September 15, 2004.
At the meeting on September 15, 2004 the Council discussed potential uses of the site based
upon the current zoning of the property and Council goals. There was also discussion about
the traffic generation of particular land uses and potential roadway alternatives that would
remove direct access from Highway 3.
DISCUSSION
Land Use
As the Council is aware the GlenRose property is zoned and guided for Public /Institutional
uses. Uses by right are all public and institutional uses, facilities and structures.
Uses permitted by conditional use are commercial recreation, inflatable domes, stadiums and
structures, and cemeteries. There are approximately 1199 acres of property in the community
zoned PI out of the approximate 23,040 acres in the city. That means 5% of the entire city is
currently zoned Pl. If you assume 1/3 of the City is developed, it is estimated that 15% of the
developed area of the community is zoned for Pl. Current and previous examples of
properties zoned PI but not used as public park include the golf course in the east, DCTC and
the northern daycare, the private golf course around Brockway, the armory property and
various churches in the community.
The purpose and intent section of the ordinance states" This District is primarily intended to
accommodate major public and institutional uses of a governmental, educational, cultural,
recreational, public service and health care nature that serve the entire community. Where
available, structures shall be serviced by the public sewer and water systems." By and large
most of the land uses allowed on properties zoned PI are public in nature such as a library,
city hall, park, or school. However, there are other private options available to land owners
such as churches, private recreational uses, a medical clinic, or hospital
The question before the Council is what is the appropriate use of the 10 -acre property. The
above land uses are all viable from a zoning perspective. There are two ways to look at the
viability of differing uses. One is to assess what the City would like to see on the site - -What
fits in with surrounding land uses and is consistent and complementary to previous City plans
and Council goals. Surrounding land uses are a park, open space associated with the
Rosewood Estates, and Hwy 3. There are also some existing non - conforming commercial
uses north of the site, adjacent to Hwy 3.
Many of the potential PI uses would fit well with the existing land use mix. All public uses --
schools, parks, libraries- -would benefit from the open space surrounding the majority of the
site. Additionally, some of the uses could enhance the area. Some of the Public /Institutional
uses would also benefit from access to Hwy 3. The library is one such use that needs good
visibility. A private medical clinic would also benefit from the visibility and traffic along Hwy 3.
Uses other than those permitted in the PI District would also benefit from the surrounding
land uses, particularly residential uses. It is staff's opinion that the surrounding land uses, the
parks and open space, help to mitigate the negative affects of Hwy 3. While the City at one
time had guided the property for commercial, the traffic issues associated with commercial
would pose some problems. If the Council was interested in having commercial development
at this site, additional land would be needed adjacent to Hwy 3 to allow construction of a
frontage road. Council member Riley mentioned at the last work session that during the
Comprehensive Plan Update the Council determined that commercial development was not
appropriate along that stretch of Hwy 3. This is borne out by the changes in land use
classification for this parcel as well as the parcels to the north. Those actions made some of
the exiting businesses non - conforming, showing the City's intent to change the land use to
residential in the future.
Traffic
One of the primary concerns raised by development of the site is the traffic impact to the
future users of the property. In looking at any development on the site, direct access to Hwy 3
is permitted. As stated in previous memos alternative access is limited. The favored option is
to bring in a road from the north: a local road that ultimately connects with Connemara Trail.
The expectation is that option will be explored if Rosemount Woods ever redevelops. The
other option is for the City to work to obtain the right -of -way through purchase or
condemnation. Typically cities do not favor this strategy to facilitate development for a
different land owner. The other option is to bring a public road through Erickson Park. This is
much less desirable due to the cost of its installation and the impact upon current park
facilities.
As shown previously, staff has ranked traffic issues high when reviewing the current
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GlenRose proposal. Because the residential townhomes are lower traffic generators than
many other uses which would be permitted on the site, staff feels the residential project
provides a significant benefit. Included is the traffic generation table previously given to the
Council showing average daily trips and peak hour traffic counts, when available. From staffs
standpoint the most important figure is the PM peak hour trips since exiting the site to head
south is the critical movement. Left turns onto Hwy 3 are difficult during any time period but
during the PM peak hours, traffic is steady making the movement more hazardous. If people
need to wait too long, they will take risks that may prove unsafe. Staff believes the two
signals that will soon be installed on Hwy 3 will provide some gaps that should help the "left
turn situation." Additionally, the exit could be posted for no left turns during specific hours to
further address this issue.
Of course if traffic was the overriding criteria for development of the site, the property should
be zoned for R1 to allow fewer units than that proposed in the townhouse configuration.
Staff does not advocate that course of action since there are other factors to consider when
determining the appropriate land use for the site. Benefits of the townhouse project are the
clustering of the units to permit buffering to Hwy 3, installation of a public road that furthers
the goal of a future public extension to the north, and adds residential development into the
downtown area.
Land Use
Average
Daily Trips
AM Peak Hour
Trips
PM Peak Hour
Trips
40,000 sq. ft. Church
365
76
27
53,400 sq. ft. Specialty
Retail
2171
263
342
53,400 sq. ft. Medical
Buildin
1270
No information
No information
20,000 sq. ft. Library
1080
21
142
51 Townhome Units
299
22
26
Total -
1379
43
168
75 Townhome Units
446
35
39
Park Development
The Council and Parks Commission have asked whether this site should be used as public
property, most likely incorporated into Erickson Park. In 2002 the Erickson Park plan showed
what would be possible, if the property was included into the larger park area. The plan
proposed use as a large picnic area and also a location for a hockey rink.
More current Council goals are for a second sheet of ice, an aquatic center, and an athletic
complex. It appears that the site could physically contain a second sheet of ice or an aquatic
center; however, it is too small for an athletic complex. Dan Schultz has indicated that if either
"community use" was considered for the site, the city should also look toward installing an
underpass from the Community Center to the site.
For purposes of discussion we have investigated what type of traffic impact may be
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associated with a second sheet of ice or an aquatic center. The assumption for a hockey rink
is that there are two teams for each hour during the PM peak hours. Information from our city
rink indicates that from 3 -6 p.m. are the busy times for the rink, which is scheduled hourly. It
is estimated that during a one hour period in the busy PM there would be approximately 100
trips. Most likely the split would be 50 going into the site and 50 leaving the site.
In speaking with Apple Valley regarding its aquatic center, the total capacity for the pool is
1200 people. The manager indicated that during nice, hot weather the center hits capacity
whether it is on a weekday or weekend. The busiest time of the day is from 11:00am to 3:00
or 4:00 pm. What can be assumed from that information is that center patrons are leaving the
site during the beginning of the pm peak hour.
SUMMARY
From reviewing the files on the property it appears that the site was reguided to PI during the
last Comprehensive Plan update due to the church's recent ownership and its desire to
relocate. The property was subsequently rezoned to PI to bring the property into compliance
with its land use designation. Prior to that, the property was guided for commercial.
The City has before it a multi - family residential proposal garnering either 51 townhomes and
a library or 75 townhomes. The Council must decide if reguiding and rezoning the property
will further the goals of the City and if the land use change is complementary to the
surrounding land uses. The decision should be based upon these criteria. Should the Council
feel that residential is an appropriate use, staff supports the current proposal. If Council does
not support residential development on the site, it should be for land use reasons.
The Council needs to dispose of the current GlenRose proposal before discussing other
future uses and potential public acquisition of the parcel. The two items need to be
separated, and the decision regarding GlenRose should not be predicated on the City's
desire to have the property become a school, park, or city hall.
N
Excerpt from September 15, 2004 City Council WorkSession
Land Use Change
Community Development Director Lindquist requested discussion on the GlenRose of
Rosemount project, a residential town home project, which requires a comprehensive
guide plan amendment. This site, across from the Rosemount Community Center, east of
Highway 3, is zoned Public /Institutional. It was commercial prior to that zoning and had
a lumber business there. St. Joseph's Church had purchased that land which is adjacent to
their cemetery. The Church decided to move to a site at Connemara Trail and Biscayne
Avenue and so no longer needed the property which had been rezoned for their use. In
1991 the Parks and Recreation Commission recommended the land be purchased to
extend Erickson Park which borders the east side of the site. The City Council at that
time did not purchase the land. The Comprehensive Guide Plan had guided the site to PI,
so in 2002 the City rezoned the property due to the ownership of the Church. Staff
believes that town homes are a better compromise than a commercial business because
less traffic is generated. Discussion ensued regarding the difficulty in placing a frontage
road to access Connemara Trail from the site. Dakota County requires 300 feet distance
from an intersection for access. A right turn in lane would be needed. The left turn in
may cause some stacking of traffic. Parks & Recreation Director Schultz noted that again
in 2002 the Parks & Recreation Commission recommended purchasing the site; however,
there were no funds available. City Administrator Verbrugge noted that PI zoning would
allow other uses exist such as hospitals, clinics, and schools. Community Development
Director Lindquist noted that diverting the traffic to Brazil Avenue is not a good safety
move due to the lack of visibility at the access onto 145 Street West next to the railroad
tracks. Council Member DeBettignies noted that many tournaments are held at Erickson
Park without traffic problems at Brazil Avenue. City Administrator Verbrugge pointed
out that a multi - residential development would fit the Metropolitan Council's community
housing goals.
Gary Mitchell, Parish Administrator for St. Joseph Church, noted his frustration with the
process. Mitchell had contacted the Parks and Recreation Director twice and was told the
funding was not available for the City to purchase the property. Dean Johnson has been
willing to work with the Church and the City to develop the property. Mr. Johnson has
invested his funds in the town home project and would like to begin building.
John Berg, of Houck Associates, representing Dean Johnson reported that multi-
residential makes the best buffer next to high traffic areas. Berg noted that the
topography of that site would be expensive to grade for ballfields or hockey rinks. Berg
said that park activities would apply the heaviest traffic at peak hours. Traffic in
residential areas is spread out during the day. Berg discussed walkways over Highway 3
or a tunnel under it. Berg stated his belief that both are expensive and have safety issues.
City Engineer Brotzler noted that Highway 3 is on preserve status, which means MnDOT
will not widen it but will only maintain the roadway.
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Council Member Riley noted she was not convinced that residential is the best use of this
land because it is at the entrance to the City.
Council Member DeBettignies said the developer has a good plan and this would bring
residents closer to the downtown area for retail businesses. DeBettignies noted this
discussion was necessary due to the history of this site. DeBettignies would like to see
the Church be able to move ahead with their plans.
Mayor Droste and Council Member Strayton expressed concerns for long -range plans.
Community Development Director Lindquist was directed to present this to City Council
on the October 5 City Council agenda providing both an approval and a denial option.
V
CITY OF ROSEMOUNT
EXECUTIVE SUMMARY FOR ACTION
City Council Meeting Date: September 15, 2004
AGENDA ITEM:
Discussion of Land Use Change; GlenRose of
AGENDA SECTION:
Rosemount
Discussion
PREPARED BY:
Kim Lindquist, Community Development
Director..
AGENDA NO.2 ,4 ,
ATTACHMENTS:
Site Plans for GlenRose Subdivision, Area
Land Use Plan, Parks Commission Minutes
APPROVED BY
RECOMMENDED ACTION: Provide staff direction.
ACTION:
ISSUE
At the August 17 City Council meeting the GlenRose of Rosemount project was before the
Council for deliberation on a Comprehensive Plan Amendment and Concept Plan Approval
for a residential townhome project. Given the change in land use proposed, Councilmembers
requested discussion at the following work session, September 15, 2004.
BACKGROUND
An application for the project was received by the City in March 2004. Through the course of
the review, the main issue has been what is the appropriate land use for the property.
Additionally, the uncertainty about the County Library site has made it difficult to determine
what the site should be in its developed state.
In 1991, the Parks Commission conducted a master planning process for Erickson Park that
included the site. At that time, the Council decided not to acquire the property. Some time
after that St. Josephs church purchased the property with the intent to relocate their faculties
there. More recently, in 2002, St. Joseph's representatives contacted the City asking whether
there was an interest in acquiring the property. The church was no longer interested in putting
their campus on the site. The Parks Commission recommended purchase of the property;
however, the Council at that time declined to acquire the property.
In 2002 the City rezoned the property from C2 Community Commercial to PI
Public /Institutional. The rezoning was initiated by the City to bring the site's zoning into
compliance with the recently adopted Comprehensive Plan. The Plan had guided the
property to Public /Institutional The guide plan change came about due to the church's
ownership in the property and its potential use of the property. Although designated as
Public /Institutional in the City's 2020 Comprehensive Plan, the Plan also lists the site as a
potential commercial redevelopment parcel.
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Most recently, the Parks Commission recommended against the GlenRose project. Their
objection was that the property should become part of the City's park system, consistent with
previous planning completed by the Commission. The 2002 Rosemount Park, Trail and Open
Space Plan and Development Guide does not list this property for future acquisition. At the
Council meeting, it was questioned whether a portion of the site should be dedicated to the
City for expansion of Erickson Park through the park dedication process. The Parks
Commission at their August 24, 2004 meeting indicated that they would prefer the cash in lieu
of land dedication if only a portion of the property would be dedicated to the city. Given the
current layout of Erickson Park, the amount of land dedication per the ordinance would not
significantly enhance the current facilities. Further, the site topography functions somewhat
as a natural barrier between the GlenRose site and the ballfields to the east.
DISCUSSION
The Council requested information regarding the land use change proposed by the GlenRose
of Rosemount project. The adopted land use plan has the property as Public /Institutional. The
current zoning for the site is also Public/ Institutional.
According to the zoning code, the permitted uses in the District are "All public and institutional
uses, facilities and structures." In the purpose and intent of the ordinance it states the District
is "...intended to accommodate major public and institutional uses of a governmental,
educational, cultural, recreational, public service and health care nature that serve the entire
community." A library, city hall, park, school, or private medical clinic would all fall within the
permitted uses. The available land uses in this zoning district are more limited than other
districts with the majority being a public use rather than private use.
Traffic
As discussed in the staff analysis of the GlenRose project, the primary concern about
development on the site is the traffic impact. While Hwy 3 levels of service will be generally
unaffected by development of the site, the need for direct access from the site onto Hwy 3 is
of concern. The most difficult movement will be from the site turning left, or southbound. Into
the site, there is a center turn lane which allows a protected left turn and any development
would be required to construct a right -turn lane. Further, right turns out of the site can be
facilitated with a right turn lane out of the property. Therefore the main inconvenience is the
drivers leaving the site, wishing to go southbound. The amount.of traffic on Hwy 3 may
impede the ability to leave the site without significant delays causing frustration. The longer
the wait, the more people are willing to take a chance and move into the traffic lane, perhaps
during a less than safe condition. Staff believes the installation of signals on Hwy 3 and
Connemara Trail will permit "gaps" in ,traffic which will help to mitigate the above problem.
For this reason, staff had investigated the potential for other access to the site. The most
logical choice was from the east, by extending Brazil Avenue, through the Park. Due to
necessary grading work, the extension would impact at least one of the ballfields currently in
place. It would also require upgrading of Brazil to a typical city section and it also raises the
question of cost participation by the city. Finally, the intersection of Brazil and 145 is less
than desirable given sight distances to the east are negatively impacted by the railroad.
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The final option is to provide access to the north. The vacant land to the north is part of the
open space approved as part of the Rosemount Woods development. If the trailer home ever
redevelops, staff would explore access to the GlenRose site from the north, intersecting with
Connemara Trail.
Due to the limited access options for the site at this time, another way to address traffic
issues is by regulating the land use of the site. Certain land uses will generate higher or lower
traffic, particularly during the peak hours, where traffic on Hwy 3 is more concentrated. The
following table depicts several different land use scenarios for potential development of the
site. The last two in the table are the two concept plans submitted by the applicant; one with
and one without the library project.
Land Use
Average
Daily Trips
AM Peak Hour
Trips
PM Peak Hour
Trips
40,000 sq. ft. Church
365
76
27
53,400 sq. ft. Specialty
Retail
2171
263
342
53,400 sq. ft. Medical
Buildin
1270
No information
No information
20,000 sq. ft. Library
1080
21
142
51 Townhome Units
299
22
26
Total
1379
43
168
75 Townhome Units
446
35
39
As can be seen from the above table, a residential land use generates fewer trips than either
the institutional or commercial land uses.
Other Considerations
When reviewing a land use change, staff generally looks at the surrounding land uses as well
as the physical attributes of the property. The currently developed land uses surrounding the
site are the city park to the east, the cemetery to the south, Hwy 3 and the school and
community center to the west, and the vacant open space and a non - conforming commercial
business to the north. Residential development would complement most of the land uses in
the immediate area, the possible exception being the northern commercial property.
However, that property is designated as urban residential in the City's adopted land use plan.
In fact, the park to the east and the cemetery to the south, make good neighbors and offset
some of the negatives of the site due to it's proximity to Hwy 3.
From a site development standpoint, the site is somewhat separate from the surrounding
properties due to the topography. Much of the property is lower than Hwy 3 reducing its ability
to function as a good commercial site. The property's isolation requires that any developer
design a site plan that can create a neighborhood or separate complex. This challenge has
lead to the site plan that is before the City.
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Conclusion
The two issues raised by the proposed development of the site are the land use of the
property and how to address previous city plans for park expansion. Staff has been looking at
the land use issue from a traffic standpoint, believing that traffic concerns are the prominent
issue in site development due to its access unto Hwy 3. From a trip generation perspective, a
residential land use generates lower daily and peak hour trips than most non - residential uses.
From a parks perspective, the Parks Commission actions indicate that they would prefer
acquisition of either all or none of the parcel. Obviously full acquisition would require payment
to the current landowner. Much of the funds within the Park Dedication fund are already
programmed for other park improvements.
The final issue is the siting of the library. Staff is hoping that decision will be made soon so
that direction can be given regarding future development of the site.
4
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.21
Excerpt from Regular Parks & Recreation Meeting of July 26, 2004
MOTION by Sterner to reject the concept plan and recommend that the Council
purchase the land for Public /Institutional use as currently zoned and -as
recommended by the Parks Commission in 2002. SECOND by Eliason. Ayes: 3
Nays: I (Jacobs) Motion passed.
Excerpt from the Regular Parks & Recreation Meeting of August 23, 2004
Glen Rose - Concept Plan — This item was tabled by the City Council at their
last meeting. Schultz asked the Commission whether they would consider
accepting land dedication if the library is not included in the plan. The
Commission did not favor this approach and will discuss the item again at the
next meeting. There was no motion on this item.