HomeMy WebLinkAboutCity Council Packet 02-08-2007 SpecialAgenda
City of Plymouth
Special City Council/Planning Commission Meeting
Thursday, February 8, 2007
6:00 p.m.
Plymouth Room B & C
Plymouth Creek Center
1. Call to Order
2. Review and Provide Staff Direction on Areas for Potential
Land Use Guiding Change in the Existing Urban Service
Area
3. Next Steps in the Planning Process
4. Public Questions/Comments
5. Adj ourn
MEMO
CITY OF PLYMOUTH
3400 PLYMOUTH BOULEVARD, PLYMOUTH, MN 55447
TO: Laurie Ahrens, City Manager
FROM: Barbara Senness, Planning Manager through Steve Juetten, Community
Development Director
SUBJECT: Comprehensive Plan Update—Land Use in the Existing Urban Service
Area (2005050)
DATE: January 29, 2007 for the Joint Planning Commission/City Council
Meeting of February 8, 2007
1. PROPOSED ACTION:
Provide staff direction on whether any of the areas described below should be considered for a
change in land use guiding in the Comprehensive Plan update.
2. 1BACKGROUND:
The City Council adopted a preliminary land use plan for Northwest Plymouth at their June 27,
2006 meeting. Before staff can proceed to any extent with plan updates for infrastructure, the
Council and Planning Commission also need to consider what if any changes are warranted to
the land use guiding within the City's existing urban area.
In some ways, the existing urban area presents the City even more of a planning challenge than
Northwest Plymouth. Most of the existing urban area is already developed. However, for this
area to remain vital, change is essential, whether it be in the form of property maintenance,
expansion or redevelopment. If no change occurs, over time any area, no matter how inviting
today, will deteriorate.
Staff focused on those areas that have experienced change since the last plan update or where
potential changes in for example, infrastructure, may affect future land use. Each area includes a
map of the current guiding, an aerial map of the area, plus general background information.
Staff grouped the areas based on current development status—undeveloped versus developed.
For each of the areas, the questions for the Planning Commission and City Council to address are
as follows:
Is the area guided appropriately for the time period 2007-2030? If not, what should it be
guided?
For potential redevelopment areas, should the area be reguided now or should the
Comprehensive Plan include a statement that the City is open to redevelopment of the
area, but has not identified a redevelopment option?
Does the area include the right parcels or should the boundaries be revised?
Does staff need to provide additional data or undertake additional research prior to the
Commission/Council making a decision on the future guiding of the area?
Are there other areas that the City should consider for a potential change in use?
To assist Commissioners and Council members, staff has also included the currently adopted
2000 Land Use Guide Plan map and a table showing 2006 existing land use (number of acres and
percentage of the total for each category of use).
2
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This property is currently guided Living Area 2.
Homestead Village, the developer of an extended stay hotel on Highways 55 and 169 (the
hotel was never built), acquired the property in 1998 for use as off-site wetland
mitigation for their project.
The peninsula is roughly 11.6 acres in size, of which 8.2 acres are existing wetlands.
The Department of Natural Resources has indicated that it will not grant access to the site
unless there is public street access. While the site has access, it is not public access.
Access is through the adjoining townhome development.
Any utility service would need to be extended from the adjoining condominium
development. It is unlikely that there is sufficient capacity to serve additional
development.
The environmental constraints, the limited potential to extend utilities to the site and the
lack of public access all indicate that there is very limited development potential on the
peninsula. The guiding should reflect the low development potential. In this instance,
Living Area 1 would reflect a lower potential than Living Area 2.
4
Southwest corner of Hi way 55 and County Road 101
In 2000, the City Council reguided the largest of the three parcels from Living Area 2 to
Living Area 4. The two smaller parcels were not considered for a change in guiding at
that time.
Adjacent uses to the south and west include Len Busch Roses and single family homes on
Urbandale Court. To the north across Highway 55, uses include Peony Promenade, a
commercial development and several single family homes guided Commercial Office.
Development of this area is complicated by wetlands and the requirement in the City's
Transportation Plan for a frontage road connecting the area to the west to County Road
101. Site access would not be further affected by the current draft plan for a grade -
separated Highway 55.
With its location at a major intersection on Highway 55, this area has excellent visibility
and good access from the planned frontage road.
Park Nicollet owns the largest parcel and is in the early planning stages to develop a new
clinic. A separate development group is interested in developing senior housing on a
portion of this parcel and the remaining two parcels. The owner of the larger parcel to
the north of the driving range. site has indicated a willingness to work cooperatively with
Park Nicollet and the residential developer. This plan has the potential to qualify as a
Mixed Use.
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Prudential site on Bass Lake Road
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The Prudential site is guided Commercial Office.
Given the location and surrounding uses, commercial office guiding is appropriate for the
developed portion of the site.
Over the past several years, Prudential has reviewed the excess land on the site
excluding wetlands, more than 30 acres) for potential sale, but has not acted to date.
This is the last available land in this part of Plymouth.
Prudential has visibility from I-494 and direct access to and from Bass Lake Road, a
minor arterial.
The western side of the undeveloped part of the site has freeway visibility, but would not
enjoy the same direct access from the freeway as Prudential. The eastern side would lack
both visibility and direct access to an arterial roadway.
Average daily traffic on Bass Lake Road and County Road 61 is increasing. Further
office development could strain the existing facilities, which are not expected to be
expanded in capacity.
The open land between the Prudential building and the residential neighborhood to the
south provides a transition between the different uses.
Based on visibility, access, traffic levels, and the need for a transition between land uses,
additional commercial office development may not be appropriate for the open land in
this area.
The undeveloped part of the site is not a separately defined lot. Consequently, should the
City determine that the open land is more appropriate for a higher density residential use
than its current guiding, the Commission and Council may want to address this change in
the text of the plan, rather than on the Land Use Guide Plan map. The text might outline
the factors why a residential use would be the City's choice in the. event that Prudential
ever sells their excess land.
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City Center guiding is a unique guiding, found only in this area of the City.
The City Center plan is 11 years old. The plan's vision was to establish an identity in the
City Center that would symbolize the area as the heart of the community. The plan called
for a mix of uses and for building design that helped reinforce a pedestrian environment
and a sense of permanence. The plan also recognized the significant natural features in
the area and the importance of connecting those features to natural features in the rest of
the City.
There are only a handful of lots remaining to be developed. However, several lots are
being redeveloped or have the potential for redevelopment. These include the library
site, which will be undergoing redevelopment by 2008, the State Farm site., the cable site
at the corner. of Rockford Road and Vicksburg Lane and the northern portion of the
funeral home site.
Creating a unique, identifiable image is one of the keystones of the City Center Plan.
Over the past several years, the City has added a number of public features to help
identify City Center. These include the ornamental street lighting, landscaping of two of
the medians on Plymouth Boulevard and the City Center sign at Highway 55 and
Vicksburg Lane. These features have been implemented in phases and none are complete
at this time.
City Hall, LifeTime Fitness, the Ice Center and Hilde Center are all destinations within
City Center. Do these fulfill the need for destination locations within the area? Should
the City encourage or develop any further destination location in City Center?
Has the current plan achieved what the City was looking for in the City Center? Should
the City consider changes to the plan goals or changes in how the City hopes to achieve
the plan goals?
o]
Except for the undeveloped Waterford site that is guided Commercial Office, all of the
properties in this area are guided Industrial.
The City considered the part of this area north of 10th Avenue for a change in use in 1999.
Area property owners documented substantial investments in their properties, convincing
the Commission and Council that the area should remain in industrial use. However,
consideration was given to studying land use in this area in the future.
The average date of construction for buildings in this area is 1972. According to
Assessing Division records, most of the properties are of average to fair quality of
construction and they have been maintained in average condition.
The four homes remaining in this area were built between 1949 and 1952. According to
Assessing Division records, they are of substandard construction quality and in poor to
average condition.
Several changes have occurred in this area since the 2000 plan.
o The City extended Revere Lane to 10th Avenue, providing more direct access
from this area to Highway 55.
o Owners of the former. Minter Weisman property on Nathan Lane have indicated a
desire to develop the southwestern corner of the site for residential use.
o There have been numerous proposals for high density development on the vacant
parcel north of the Waterford development. This site lacks good highway
visibility and has poor soils, which has reduced its desirability as a commercial
site. On the other hand, the low density industrial uses to the north and east of the
site would become non -conforming if the site developed with residential use.
o Staff recently met with a developer interested in constructing a 230,000 to
245,000 square foot office, office/showroom/warehouse development in four
buildings on the Waterford site. This proposal could be consistent with the
current CO guiding of this site.
Many older industrial buildings cannot satisfy the demands of the existing industrial
market. During the span of the 2030 Comprehensive Plan, some of the industrial
buildings in this area and other parts of the City will become less competitive in the
market.
This area is located adjacent to one of the City's greatest natural assets, Medicine Lake,
as well as an extensive park and trail system. In addition, the area has good highway
access, but many of the properties are located such that they are not negatively impacted
by highway noise.
12
North of Highway 55 and west of West Medicine Lake Drive
13
The vast majority of this area is guided Living Area 1. 'Two lots along Highway 55 are
guided Commercial and Commercial Office.
In 1999, the Commission and Council considered the lots along West Medicine Lake
Drive for a change in use from Commercial and Living Area 1 to Living Area 2, with no
change recommended. The minutes do not reflect why the change was eliminated from
consideration.
Nearly all the homes in this area were constructed in the mid 1940s to mid 1950s and are
of poor construction quality and average condition. However, they represent part of the
City's affordable housing supply.
The following changes have occurred since that time:
o Stone Creek Village was developed on the east side of West Medicine Lake
Drive.
o Intersection improvements were made at West Medicine Lake Dr.
o The City Council has approved a redevelopment project for the Plymouth
Shopping Center site.
o Staff has had several inquiries about assembly of some of the lots for retail
redevelopment.
o The Will's Transmission property has been sold to a company that sells tubing
similar in style to a NAPA store). The new owners have applied for a plan
modification for minor parking and exterior building alterations.
The age of the housing in this area, the proximity to Highway 55 and the amount of
adjacent development and redevelopment make this area a potential target for
redevelopment to more intensive use.
Staff has identified tentative boundaries for this area. If the Commission and Council are
interested in designating this area for future redevelopment, are the boundaries shown the
right ones?
14
g. Hi way 55 corridor from I-494 to the western border of Pl nth
15
Mn/DOT is currently studying the potential of converting this section of highway to a
four -lane, grade -separated facility. The Council has indicated support for this option.
Any changes to Highway 55 are long range, however, any changes in land use in this
corridor should be made in consideration of the potential for future grade separation.
Although the Commission and Council may be considering several specific areas along
the corridor, how the corridor functions as a whole is also an important consideration.
16
These two parcels are guided Commercial.
The City considered this area for a change in use in 1999. Both the Planning
Commission and City Council ultimately determined not to make any change to this area.
At the time, the owner of Tri-State Drilling indicated that they planned to remain at their
site indefinitely. Both the Tri-State owner and the owner of Dundee Nursery indicated
that changing the guiding would present a hardship if anything happened to their
buildings or if they tried to sell.
The existing street network could not support more intense commercial uses on these
sites.
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Southeast quadrant of Highway 55 and Vicksburg Lane
19
This entire area is guided Industrial.
The Council analyzed part of this area assuming future commercial land use as part of the
traffic study for the CSM project directly opposite on the west side of Vicksburg Lane.
The traffic study found that with the installation of the traffic signal at 32"d Avenue and
the addition of left and right turn lanes, the intersection of 32nd and Vicksburg would
operate at an acceptable level of service.
Three of the quadrants of the intersection of Highway 55 and Vicksburg Lane are
commercial; this quadrant is industrial.
All but one of the buildings in this area was built in the 1970s or earlier. According to
Assessing Division records, most are of average construction quality and in average
condition.
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j. Southwest quadrant of Highway 55 and I-494
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The City Council reguided this area from Industrial to Commercial Office as part of the
last Comprehensive Plan update. This area was considered a gateway to the City and as
such, it should have a presence more like the West Health campus than the single story
individual and multi-tenant buildings currently in the area.
In 2005, United Properties approached the City about potential redevelopment of this site.
They were proposing an office, hotel and retail commercial project. They approached
land owners in the area, but did not receive positive response from a large enough
number of landowners to make the project feasible. Since that time, several other
developers have made inquiries. To date, no one has moved forward with either a sketch
or an actual application.
According to Assessing Division records, most of the buildings are of average
construction quality and in fair condition.
The upgrading of the intersection of Fernbrook Lane and Highway 55 may enhance the
desirability of this area for redevelopment.
22
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With the exception of Messiah Methodist Church (guided Living Area 1), all of this area
is guided Commercial.
This area has undergone and is continuing to undergo change.
Most of the shopping center in the southwest quadrant is now occupied by the Minnesota
School of Business. This has put an increasing demand on parking in the center. The
School has a joint parking agreement with the church to ensure they have sufficient
student parking. However, they have not needed to use the church parking to date.
Rick's Market in the northwest quadrant closed this fall. The site is currently up for lease
or sale. Staff has had conversations with parties interested in redeveloping the site for
multiple family housing, including senior housing, and for reusing the current building
for youth hockey (mini rinks) and a fitness center. The former would require a reguiding
and rezoning; the latter would require a rezoning.
Messiah Methodist Church is in the process of preparing plans for an expansion.
County Road 101 will be upgraded in 2008.
24
1. Southwest corner of Rockford Road and Hi hway169
25
This site is guided Commercial.
The Planning Commission and City Council looked at this site during the last
Comprehensive Plan update. They decided that while the existing center was not
thriving, the guiding for the site was appropriate.
The shopping center currently has several vacancies, accounting for roughly 21 percent
of the leasible area. However, the owner has secured tenants for the large space vacated
by Erickson's SuperValu.
The City operates a park and ride lot on the south end of this property. In 2003, the City
explored the idea of relocating and expanding the park and ride facility on the narrow
portion of the site that extends west to the Nathan Lane/County Road 9 intersection. The
City abandoned this idea when it became apparent that the parking area could not be
adequately screened from the residential neighborhood to the south. Given the City's
transit service area and route structure, this area remains a good location for an expanded
park and ride facility.
Since 2000, the property owner had some redevelopment discussions with a big box user.
Nothing came of these discussions. City staff has also had several conversations with the
property owner about potential redevelopment in conjunction with upgrading the park
and ride facility. Without substantial financial participation from others, the property
owner is not motivated to move ahead with redevelopment. .
This site has good visibility from Highway 169, but the access is circuitous.
Any potential redevelopment may be complicated by the fact that part of the site was
wetland before the building was constructed.
26
OAF
The central portion of Plymouth in the I-494/Highway 55 corridor has a large amount of
older industrial buildings, which are not necessarily adaptable to current market needs.
Many industrial buildings throughout the City may not be ideal for today's industrial
needs. However, as markets change, the buildings may still be suitable in the future for
new types of industrial uses. As the current industrial market has changed, the City has
approved numerous conditional use permits for 1) commercial recreation uses that
require the clear heights associated with industrial use and for 2) more than 50 percent
office use. The City also undertook an industrial use study in 2004 that culminated in the
addition of artist studios, commercial and portrait photography studios and dry cleaning
processing plants in industrial districts. These uses also require the types of spaces found
in industrial versus commercial buildings. The City's approach to industrial zoning
allows for greater flexibility in leasing industrial buildings. Continuing this approach is
an alternative to reguiding and maintains the potential for new future industrial
businesses that provide good paying jobs.
Many of the sites in this area have good visibility and good access.
Commercial uses require both good visibility and good access.
5. NEXT STEPS:
Once the Commission and Council have decided which areas may change in guiding, the next
step will be to determine the public process to inform property owners of the potential changes
near their properties.
Concurrently, staff will be working on an update to the current land use goals and policies.
ATTACHMENTS:
1. 2000 Land Use Guide Plan
2. Existing Land Use table
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FIGURE 4-3
2020 Land Use
Guide Plan
Legend
Comercial (C)
Living Area 1 (LA 1)
O Living Area 2 (LA 2)
O Living Area 3 (LA 3)
O Living Area 4 (LA 4)
O Living Area Rural (LAR)
0 Public/Semi-Publidlnstitutional (P-1)
Commercial Office (CO)
City Center (CC)
Planned Industrial (IP)
City Limits
2020 MUSA Line
0.5 0.25 0 0.5 1 1.5 2
Miles
THIS REPRESENTS A COMPILATION OF INFORMATION AND DATA
FROM CITY, COUNTY, STATE AND OTHER SOURCES THAT HAS
NOT BEEN FIELD VERIFIED. INFORMATION SHOULD BE FIELD
VERIFIED AND COMPARED WITH ORINGIAL SOURCE DOCUMENTS.
Updated January 5, 2007
ribaty of
Plymouth, Minnesota
EXISTING LAND USE: JANUARY 1, 2007
SOURCE: CITY OF PLYMOUTH COMMUNITY DEVELOPMENT DEPARTMENT
NOTE: ACREAGES BASED UPON HENNEPIN COUNTY TAX PARCEL RECORDS; DOES NOT INCLUDE ACREAGE OF R.O. W. OR LAKES