Loading...
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 4 I 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 3 A 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. 1 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. f 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. 2 4 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. 3 a 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 DE Johnson Homes Propc I for the Former Sunrise Lumber Site m (� Brockway m ®�C]OO Site ci — " 'LOWER'UZTH'Sf'A — Subj P roperty �/ I r — I 738TFtSI' Rte i a :` � — _ 1W c -- Rosemount Z -Community;. :1— o p Center o � Rosemount High School l ° i cQ � i Central Park - r -- -- - -- -- - - City i HaIl i [ E l l 0.25 0 0.25 Miles i f 1 �� r i 1 1 J � T TI - . • I :111 ,I NORM 0 50 foe �� 1QwIbE -� 1 f,t1 1 '1 - I EASIPA EASEIAENT - - E . WALL _ p -- -- • , 5 ; ` 1.000SO.f1. •'i �J�• ; ;.; _ • ', - , v .( /c., , � .. 2 2004 U UY .. II JUN 4 i - NOTES:. TOTAL AREA (0.0 AC. .... — WALL • II / 1 1 — LESS: T _ LIORARY SITE 3_0. 6CT NET AREA 7.0 AC. TOTAL SINGLE. FAMILY TUIVN11UME5 90 UNITS 11 � / % / /7�! i ♦_ �'` RU TOTAL / 1 51 UNITS DENSITY(NET) 0.5 UNITS /AC. ( t i� {, �' DENSITY(GROSS)d.7 UNITS AC. OPEN SPACE /WETLAND 1.0 AC. it GlenR `a / !' ! I i'/ / � \ i I r Lti ' :✓- - Of Rosemount so loo sT­ l.' I_+ / ma/yy,�' /.' �_� �/ /!• / / ' Ex19L�NG 1v. W�pE / S �-" 1 �, ' I I RosemOUN, Minneso�i 1 •'- r !' i� /i mo /. EASL MEIT i - a � '•, .� k � .... % / .,, sea.e m reel 111 PLI� - . A�r1fA - .•,.. \7.'`14 ... - . 1 � - .. / - 1 1 j' � ; \ 1 riS.iloexu r ' f /' / 1r a P ON9i 1 .. AS50CUTESJ In :021 PI OV l O / -FILL 1,76 o ,40 fT.' , % "� ..- � '^.•rM. ^Yl ! T _ r.�W� - ;` : ' -� "_wenulS Nliw+l' f Y i ,,r.• — ,',i X',1 \ _ ._.. �' ' ffi i � T � ( � ! ].00080 fi. -�.' , r ,,) : ' '' _ ✓ I 1 YYY ) ' -\ - _ .. ...... . ,. j � 1 .,i •io� /' -' ��� r �. 1 r EZlsTwo rr'n /,� � ✓ _ - `� %i. .i� Y_ /S 0VWMANO ` ^ f r /!�.' j NOTES: 1 r• 11� BUFFED i 1 � +! r • r� I ''' / / / .. ✓% �� / / k ' WALL I- TOTA1. AREA 10.6 AC. /, \ , /'/ ' ! \ '� ( /�� �. �,.� —_.l J� / / /,�Y /'• •- .c_. > \ •'•.. ./ 1 `TOTAL SINGLE FAMILY: - / TOWNI1061E5 $ r ! 62 UNITS rr ; .. ROWIIOUSES IJ UNITS L <n j•....\ •,, I �+ /// / \. •. S I t l / � TOTAL 75 UNITS Dakota C l oun o w/o D librai •\ 1 !./ .- S 1 // l - v .DENSITY. Y Y > l , ( _ 1 / (// I 1 8.6 UNITS/AC. I f t �.._...,: li.J // : q /(� OPEN SPACE /WETLAND r «.. 03156 C2 -2 I 'd -- J� 1 Iwo F m - .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.