HomeMy WebLinkAboutRe: commercial/industrial studyMEMORANDUM
TO:
FROM:
DATE:
SUBJECT:
Mayor and City Counc~lme~ba~rs,~.~ /
Frank Boyles, City Manager ~ ~./
July 13, 1994
July 18, 1994 Council Workshop on Commemial, Office and Industrial
Study
At the July 5 1994, meeting I distributed a copy of the report recently completed by Blair
Tremere of Public Affairs Consulting entitled Commercial and Industrial Development
Opportunities, a Land Use Plan and Regulation Study for the City of Prior Lake, Minnesota. We
have scheduled a workshop from 4:00 p.m. to 6:30 p.m. on Monday to review the report and its
recommendations in detail. Please be sure to become famihar with the report and its
recommendations before the workshop.
The purpose of the study session is to have Blair review the contents of the report for City
Councilmembers. The work product from the meeting will be an expanded, modified or reduced
list of potential land areas for commercial, office or industrial development. The work product
Could also include any revisions in the type of commercial, office, or industrial to be contained
on any of the land areas identified.
Once this list has been completed Dick Kder (who will be at the workshop) will subject the list of
parcels and the proposed uses to a market analysis. The market analysis should identify
whether the market will sustain the volume and type of uses proposed. Councilmembers will
review the market analysis in a subsequent workshop to confirm that they concur with the final
results.
The work product from that workshop will be subjected to a traffic, sewer and water analysis to
assure that we are capable of serving these land areas from an infrastructure perspective. Once
confirmation has been received then these results will be incorporated into the draft 2010
Comprehensive Plan.
I am attaching for Council information an agenda for the workshop. To facilitate discussion at
the workshop we w have a large map showing each of the properties which were subject to
the study, as we as, s des transparencies andphotographs of each. I have invited Planning
Commission and Business Development Corem ttee members to attend and partic pate n this
workshop.
Counc members may w sh to come to the City Council Chambers before 4:00 p.m. to review
the various graphics ~n anticipation of the meeting, A light dinner will be served commencing at
6:30 p.m. Please let me know by Friday if you need another copy of the study.
FB:aw
Attachment
4629 Dakota St. S.E., Prior Lake, Minnesota 55372-1714 / Ph. (612) 447-4230 / Fax (612) 4474245
AN EQUAL OPPORTUNITY EMPLOYER
July 11, 1994
Mr. Dick Krier
James R. Hill and Associates
2500 W. County Road 42
Burnsville, MN 55337
Subject: Proposal for Market Analysis
Dear Dick,
_~tached for your reformation ~s a .. _ ................ e ............. , -mp -
~.-On July 18 the City Council will review the recommendations in this report
and confirm which parcels should be earmarked for commercial, office or industrial purposes.
The Council may increase or decrease the number of parcels under consideration.
I am interested in receiving a proposal from your firm to complete the second phase of this
project. The second phase amounts to a current and future (say 15 years) market analysis of
the proposed uses on the parcels which are proposed. In short, the market analysis is intended
to be the reality check on whether these proposed uses can be absorbed in the present or
future market arena.
Please provide me with a "not to exceed" quotation for conducting a market analysis and
providing a written report on a per parcel basis. Assume in your estimates that you would
attend the July 18 meeting so that you would be present to hear the Council's discussion of this
subject and that your work product would be due by August 22.
If you would prefer not to submit a proposal please pass this request along to James McCombs
or I can make alternate arrangements. In the meantime, I look forward to receiving your
proposal as soon as possible.
Thanks~/ou r a~iStance.
?i~cere~,I
FranieOoyle~s /
FB:db
cc: Blair Tremere
4629 Dakota St. S.E., Prior Lake, Minnesota 55372-1714 / Ph. (612) 4474230 / Fax (612) 447-4245
10: Cit[I ~nager Frank Bogle~ and City Plama~r Bor~t Graser
FBfl~l: Blair Tre~ere, Public ~ffair~ Consulting
~JBJECT: Agenda for July 18, 19°~1 City C~mncil Study ~e~sion
I~YE: July 1Z, 19~1
The following is the agenda I recomaend for the City Council study
session regarding comuercial and industrial development
opportunities.
AGENDA
City of Prior Lake City Council Study Session
July 18, 1994
Review of Comprehensive Plan Report,
"Commercial and Industrial Development Opportunities"
4.
5.
6.
Call to Order: 4:00 p.m.
Introduction and explanation of meeting objectives: to
discuss report findings and recommendations; to select desired
areas for possible commercial and/or industrial designation;
and to identify specific land uses or range of uses for the
selected areas.
Overview of Report and Summary of Recommendations
Review and evaluate each potential area identified by report
Select desired potential areas
Designate prospective use or uses for each selected area:
Commercial uses (possible categories): office only/
retail-service only/ mix of these/ shopping center with
mix of uses/ high,au-oriented service / hospitality-
recreation/ other
Industrial uses (possible categories): "heavy"
manufacturing only/ "light" manufacturing only/
warehouse-distrilrdtion only/ mix of all or some of these/
mixed development including certain commercial uses
incidental to industrial character/ other
Summarize findings and next phase (technical evaluation of
market feasibility, traffic generation impact, and infra-
structure capacity, availability, and timing)
8. Adjourn: 6:38 p.m.
CG~'~C~L AND 'rNDUSTRIAL DL'VBLOP~NT OPPORTUNITIES
A Land Use Plan and Re~gulations Study
CITY OF PRIOR LAKE, MINNESOTA
June, 1994
~epare~ ~
Public Affairs Consulting
P.O. Box 27126, Golden Valley, I~N 55427
The City of Prior Lake is updating its Comprehensive Plan as
it experiences continued and mostly residential growth; as it
adapts to the impact of the Mystic Lake Casino and other
developments in the Shakopee Medewakanton Dakota Community; and as
it anticipates the completion of the new Bloomington-Ferry Bridge
and Shakopee By-pass.
Public Affairs Consulting was retained by the City to assist
with the investigation of opportunities to add more land zoned for
commercial, industrial, and office uses to the "2010 Comprehensive
Plan," and to report findings about the feasibility of non-
residential development opportunities.
The City also asked the firm to assist with the preparation of
amendments to the text of the Comprehensive Plan and the Zoning
Ordinance. The items for consideration as amendments provide for
multiple business zones based upon factors as topography, density,
location, business use types and needs, architectural and
landscaping standards, and the like.
This report is designed to serve as a guide for pursuing new
planning concepts which are attractive to the City, but which need
to be tested technically and evaluated as public policy. It also
contains recommendations for amending existing plans and controls
and adopting new techniques. The following topics are covered:
I. The role of the Comprehensive Plan
Status of the draft "2010 Plan"
Questions and direction of change
Relationship of the Land Use Guide Plan to other
Plan elements and impact of added commercial and
industrial development
II. Areas of potential non-residential development
Opportunities at designated locations
Preliminary designation of Plan map changes
Market feasibility today and tomorrow
III. Enhancements: changes, revisions, and amendments
Recommended changes: policies and controls
2010 Plan text revisions
Zoning Ordinance amendments
Study sessions with the City Council and other officials will
be held to review this report and to define final work products.
Draft Comprehensive Plan and Zoning Ordinance amendments, with
specific new and revised text, will be prepared for public hearing
and adoption, using the decisions made during those meetings.
Page 1
I. ~he Role of the Coa~rehansiVe Plnn
The Comprehensive Plan (The Plan) is. a guide for .the
development and redevelopment oft he City. It ~sbotha reflection
of local policy as well as a legal document required by Hinnesota
Statutes. The Plan's focal point is the Land Use Guide Plan
element~ other elements include a Transportation Plan, a Public
Utilities Plan, a Park Plan, a Housing Plan, a Water Resource
Management Plan, and an Implementation Plan.
The Land Use Guide Plan and map recognize the City's natural
and man-made features and define the future use of the land. Land
use classifications are defined and adopted as the statement of the
City's vision for the development of the community.
The development vision is often the ultimate, fully developed
City~ however, it is typical that The Plan will set periods of 10
to 20 years with the understanding that periodic reviews and
evaluations will be conducted, resulting in updated plans.
The Land Use Guide Plan represents the official findings of
highest and best use for properties throughout the City. The Plan
should be a dynamic and flexible guide~ thus, it is subject to
change which may be initiated by land owners or by the City.
The City of Prior Lake has had a comprehensive plan since the
early 1970's~ the current version was adopted in 1981. An updated
plan was drafted and entitledthe "2010 Comprehensive Plan" and it
has been undergoing review and refinement for a couple of years.
The Plan seeks to provide a framework for Community development
through 2010.
The current draft updated Plan provides for a level of
commercial and industrial development that is less than the City
Council deems appropriate for the period through 2010 and through
the ultimate period when full development is realized.
An updated plan is needed and required, whether the focus is
on 2010 or on the ultimate community design.
Ouestions and Direction for Chance
Emphasis upon continued residential development in the current
plan was a reflection of earlier City policy and practices which
were founded before the advent of the developments by the Shakopee
Medewakanton Dakota Co~munity~ before the actual construction of
the new Bloomington-Fe~f Bridge~ and when landowners and City
officials were less anxious about the character of future
urbanization of rural and unserviced parts of the City.
Page 2
Questions the City should ask and answer in order to create a
firm base for determining a desired and realistic level of
commercial and industrial development include:
--- Why should more land be designated as "commercial" or
"industrial"?
--- What commercial and industrial development is desired?
What, if any, should be avoided?
How much commercial and industrial development do we want
(as a percentage of the total developable land and as
compared to residential and other uses)?
--- Is there a sense of balance between residential and non-
residential land uses that should be planned?
--- What modifications to current plans, mission statement,
codes, and policies will be required?
Change of plans is often directed when the policy makers
determine the need to respond to external events; when property
owners or developers seek approval of plan amendments to
accommodate desired improvements; and when The Plan is being
reviewed and updated.
The direction by the City Council is timely since the draft
2010 Plan has not been considered at the required public hearing
before the Planning Commission (input was solicited in the summer
of 1993 from residents regarding specific neighborhood plans).
Thus, the conclusions from deliberations about land classifications
can be reflected in the hearing draft.
Decisions about the additional commercial and industrial land
should be accompanied by decisions, albeit preliminary, about the
classification of the remaining land. This report later discusses
the significance of designating land as "Agricultural", in the Land
Use Guide Plan, rather than as some urban category such as "Multi-
residential" or "Commercial."
Relationship Amona Plans and Impacts of C~b_anae
The Land Use Guide Plan and map may viewed as the hub of a
spoked wheel, with the spokes reaching to the other elements of The
Plan. The Land Use Guide Plan is the base upon which the other
elements are built; the elements are very inter-dependent.
The Transportation Plan and the Public Utilities Plan are
critical elements for a developing community, not only because they
identify infrastructure improvements that will be needed to support
development, but because they identify the relationship with the
systems of other jurisdiction~ including the Metropolitan Council,
Page 3
the State, and the County.
All changes to The Plan are subject to review by the
Metropolitan Council which has approval authority over a~endments
which are found to have an effect upon metropolitan systems which
include sanitary sewer and transportation.
Changes to the Land Use Guide Plan have a "ripple effect" upon
the other elements of The Plan; the impacts are not necessarily
negative, but they are often deemed to be "major" rather than
"minor" when they involve reclassification of undeveloped land. It
is fortunate that issues concerning transportation and utilities
are quantitative, e.g., traffic generation and the service levels
of existing and proposed roads and highways~ and, waste generation
rates and capacity of treatment and disposal systems (assigned and
actual).
The impact of~ proposed land use~ohanges upon these systems can
finalized, t"h~":.~O the other plans ma~also berequired~
fiscal i~pact of capitml improvemen~ Costs for development is a
critical to sound planning.
The City has a draft of a recently updated Transportation Plan
which identifies the service levels of existing and proposed roads
and highways. The transportation system was tested against current
land uses and the future land uses designated by the land use guide
plan.'
The City also has information from the Metropolitan Council
(and former Metropolitan Waste Control Commission) about the sewer
capacity allocated to the City. WeSte~generation and disposal
rates of the commercial and industrial uses that would be allowed
by the amended land use plan are critical for comparison with the
assigned capacity.
This directly relates also to the Metropolitan Urban Service
Area (MUSA) designation which governs the timing of the City's
future development. The City completed a complex process of
amending the MUSA designation last year to-provide for the Wilds
development, much of which was outsidetheMUSA. Location relative
to the NUSA boundary is a key indicator of timing of development.
Fiscal impact of land use plan changes and of future
development is an important consideration in areamotherthanroads
and sewers. The costs of added personnel (typically the largest
single budget item) and capital equipment and buildings should be
evaluated.
New cosmercial development will place increased demands upon
other City services such as public safety (police nnd fire).
Shopping centers and individual retail stores attract people who
Page 4
bring their weaknesses and foibles as well as their cash and credit
cards. Lost kids, shoplifting, and bad checks are parts of the
business which involve the City.
Industrial uses create demands upon fire prevention and
suppression services (including hazardous material handling).
Employees who play ball after work place demands upon City parks
and play fields, and the employers consider that as an entitlement,
even if the employees are not residents (they pay taxes, too).
Enforcement of zoning and sign ordinances, of environmental
regulations (including unfunded state and federal mandates), and of
building and life safety codes will cost more. So will the
administration of business licenses, of water and sewer services,
and of street maintenance.
The need to conduct an impact analysis should not dampen the
desire to provide for more than residential development. It is a
reality check, however, when the City determines the timing of the
new development and the extent to which attractive commercial uses
will serve the residents of the City rather than visitors.
Commercial and industrial developments are attractive as
contributors to the tax base and as employment centers. The
benefits of actual tax contributions and the number of jobs that
will be filled by residents may not cover the costs of supporting
the developments. The benefit to residents of added services and
goods, however, is important, though less tangible.
Contribution to or distraction from the city's character and
quality of life is often the deciding factor as a community crafts
and refines its comprehensive plan and determines what the highest
and best land uses.
Page 5
Preparations for the task of identifying areas for potential
commercial and industrial development included study of the current
Comprehensive Plan, the draft 2010 Comprehensive Plan, and of the
Zoning ordinance. Maps and other information regarding the natural
environment and existing land uses were reviewed. Field conditions
were observed through site visits and examination of recent serial
and ground photographs.
Earlier studies conducted for the Ctty were examined: the 1990
"A Balanced Growth Perspective, A Business/Office Perk Study" which
is cited in the 2010 Plan; the 1985 "Market and Development
Strategy Analysis" which was conducted for Municipal Development
District No. 1. (the downtown area); and the 1987 "Prior Lake 2000
Report" to the City Council.
Refer to the recommended changes to The Plan, policies and
ordinances which are listed in the final section of this report.
Those recommendations are among the land use.plaruling principles
that provided the framework for identifying the potential
development areas.
The followingpotential commercial and industrial development
areas are adjacent and proximate to the highways specified by the
City. The enclosed city map has been marked to coincide with
these descriptions. The places shown on the map and described
below a~e intentionally general and, with few noted or obvious
exceptions, are not site or parcel specific.
Co~ercial development of the ~uadrants of the intersection of
County Road 42 a~lCotmtyRoa~ E3, a~ a £o~al point of the 2010
EaCh quadrant contains 160 acres for initial planning
purposes. Development constraints ofnatural features, ownership,
and existing development can be addressed as the planning is
refined and desigllated for specific parcels. Land over one mile
fromthe intersection will b · address elsewhere in Sections dealing
with County Roads 42 and 83.
There is Po~ential for commercial development, given the
exposure to the increasing traffic on the two highways, and the
crossroads-gateway character. ~Ale co~x~ial development off, he
entire area of each quadrant isulll~kely,
~ojects fncl~i~ ~ial el~ of
office (oor~rate head--ers
~a~ant is feasible.
~esidential development could be integrated with the
eaployaea~, service, a~d ~aiI cen~rs. The pattern of the
Page 6
southeast quadrant, anchored by the Wilds, could be replicated in
the other quadrants.
Each quadrant will require an internal circulation system,
including frontage roads which will be the main access to
businesses including those that are highway-oriented. County
standards limit the spacing of private access drives to one-half
mile for roads with the traffic generation planned for these roads.
Concentration of freestanding small eating establishments
(fast food, specialty menu, drive-up) and short-stop convenience
service businesses should be limited and the typical proliferation
of these uses along the frontage roads should be discouraged.
Planned unit developments (non-residential and mixed
residential and non-residential) on large tracts should be
encouraged. Both the developers and the community benefit; the
planning process can better address the preservation of the natural
features such as the woodlands and wetlands in this area. Phased
plans can be modified over time in response to changing physical
and market conditions.
Regional-scale shopping centers may be feasible, but thorough
market surveys and projections should be required of prospective
developers before plans are approved. High volume traffic that is
destination-oriented (leisure, recreation, and entertainment) on
adjacent highways does not ensure successful shopping centers
(unless they contain one or more of the destinations).
Food, hardware, and drug stores that are oriented toward a
local customer base will be appropriate to serve the growing City
population.
Strip shopping centers along the highways should be
discouraged and even restricted to certain sizes. Conceptual
master plans and guidelines in The Plan can be used to set the tone
for the ultimate development.
Master plans for vehicle and pedestrian circulation patterns,
yard dimensions, building setbacks, site coverage and aesthetics,
and signage can be adopted and reflected in zoning regulations to
ensure a quality focal point is realized.
~, Northeast and southwest quadrants: planning should feature
Vdestination uses, including hospitality businesses (hotels and
motels, family and upscale full menu restaurants). Uses dependent
upon impulse patronage and on-site advertising should be
discouraged.
Northwest quadrant: the initial commercial potential is in
the west portions, due to the existing development in the east
half. Large sites for corporate headquarters and research and
Page 7
develol~aent fac£1itieswouldbe-muitable. There may bepressure to
redevelop the east half, given the highway exposure~ in that case,
where land packages can be assembled, the planning outlined for the
other quadrants would apply.
~ q~lmt~ speo~al~ or. local shopping and
neighborhood-oriented service facilities are appropriate, with
internal &cces~fro~ theW~lds~and extended~develolments. This
quad~an~ould~upportre~ail u~e~ith&non-loual customer base,
but access onto the county Roads will beveryrestri~ced. Housing
with a density higher than the Wilds would be feasible, as &
transi~ion to the commercial uses closer to the highways.
Commercial and industrial develotmentpotential in areas ad~¢
and proxi~etoselectedhi~heays
21-A
This area on the north side of the highway, easterly of
Industrial Circle and westerly of the City boundary, hes
potential as r~evelOl~ent and new development
induetrialarea. Municipal utilities Should be provided
and blighted and potential environmental hazardous uses
should bemitiga~ed and/or eliminated.
The area is attractive because of the access via this
county road whiOhi iS planned to .connect with 1-35, and
because of its proximity to the new Prior Lake Business
Park.
Only light industrial with incidental and complementary
office u~es should b e allowed.
21-B
This area is directly across from thePriorLake Business
Park. It should have the same zoning and beplannedfor
similar uses. The ,proximity to residential and
institutional use~ suggests that so-called ,high tech"
office-~howroo~ t~e~. would be acceptable. Light
industrial uses wi~pr~persite and build/~g,.designand
transition featurescan be highly compatible.
Access and proximity to the area industrial developments
are responsible for the high potential.
21-C
Only light industrial with incidental and complementary
office uses should be allowed.
The To~n Center Or uDowntown#, al°rig both sides of the
highway, £ro~.'T.H~ ~a ~o;:Aro&dL& S~re~c, has potential as
a commercial center with public and destina~on-oriented
uses. It can be rejuvenated es the south focal point, as
Page 8
21-D
21-E
the source of the community's heritage, without the
intense traffic of its north counterpart at County Roads
42 and 83.
A civic or cultural center theme is appropriate and can
enhance the commercial viability through improved off-
street public parking. Planning should concentrate on
professional offices, financial institutions, and non-
automotive (vehicle sales, fuels, and mechanical repair)
consumer services.
The access is excellent, but high volume traffic
generators, best located nearer the highway, should not
be the primary uses through most of the center.
The northwest quadrant of the intersection with County
Road 82 (154th Street) has potential for a neighborhood
commercial center. The area would be approximately 40
acres, anchored at the corner.
Circulation would be internal, with no private drives
onto the highways. Access would be limited to a public
street intersections with County Road 21 and County Road
82.
The convenience and service uses in the center would be
oriented to the surrounding residential developments.
External impacts (signs, lighting, outside activity and
storage, odors, and noise) should be minimized or
prohibited through zoning standards and other
regulations.
The southwest and south east quadrants of the
intersection with County Road 42 present commercial
opportunities.
The area east and north of Jeffers Pond in the southwest
quadrant could serve as the site for a corporate
headquarters or high amenity office or medical complex.
Retention of natural features would be critical and the
constraints of the Shoreland District would control the
amount of development.
The opposite quadrant to the east could support retail
and service uses, though the area is also conducive to
one or more high amenity office complexes.
Circulation would be internal with the accesses onto this
road and onto County Road 42 limited to public street
intersections approximately one-half mile from the
corner.
Page 9
21-F The land on either side Of a £uture ext~sion of this
road nOrth of Com/~y Road' 42' t:o the Cil:y bOundary (as
shown in the ~af1: TTan~por~ca1:ion Plan) has commercial
pOtential. This ~ould ~erv~ as ~lO~l~r ~hicjh amenity
gateway area, with corporate offices and perhaps some
public or private ln~r~itu~ione as the ~t uses.
Retail and oomsu~er ~ervioe~ would be feasible but the
character of the ~ .w~ald likely be neighborhood and
short trip shopping, and, due to the co~utar traffic
this road will bear, oonvenienca oriented.
The location is far enough from the recreation-leisure
corridor to the ,west 1:0 be prine for non-retail
employment centers.
The focal point value here is different than at County
Roads 42-83 and even at the Town Center. X~,will have
high visibili1:y and will declare a "sense. of place" for
many people--including many commuting raeidents-- each
day.
Access onto either this road or onto County Road 42 will
likely limited to public street intersections that lead
to in1:ernal circulation and frontage road systems.
Count~ Road 42
42-1
The area approxi~atelyonelileeast of ~heintersection
with County Road83 on the south side o£ the highway has
potential for ~, non-retail businesses, professional
offices, and clinics.
Strip center design can end should be avoided through
design of the frontage road and internal circulation
system and throua~h design standards that require
preservation of natUralfeatures.
This area could link VisuallY with1:he oo~ercfal area in
the southwest quadrant of the intersection with County
Road 21 (21-E). Vehicular access will he via internal
roads from the south and from one or two street
intersections with~Road 42.
42-2
The area on the northside, fro~'abou1: one mile eas1: of
the intersection with County Road 83 to MoKennaRoad has
co~mercial poten1:ial.
A limitedamoun~ofco~veniencelow-inten~ityretailuses
and serviceswouldsuppo~c~tereeidentia~develop~ent on
the north side. Highway oriented uses should be
discouraged.
Page 10
42-3
McKenna Road will likely be one of the few public street
intersections between County Road 21 and County Road 83.
Visual and physical linkage with the northwest quadrant
of the intersection with County Road 21 is feasible.
The quadrants of the intersection with Pike Lake Trail
have commercial potential. Careful planning and zoning
are necessary to ensure the possiblegateway value of the
intersection with County Road 21 is preserved, if County
Road 21 is to be extended north. There will likely be
pressure to fill the quadrants with highway oriented and
retail uses.
Neighborhood support services would be appropriate for
the southwest and southeast quadrants. Access from the
south, as fed by the street system that branches to the
west and to the east, enhances the potential for
commercial development that is not dependent upon the
highway.
The I-1 zoning in the southwest quadrant should be
displaced with a commercial district; a "Business Park"
might be appropriate, without any manufacturing or
distribution uses. This quadrant could also support some
higher density housing as a transition to the south and
west.
The north quadrants might support neighborhood
convenience centers for the residential areas to the
north, but planning for this area should avoid competing
with the development at County Road 21 north of County
Road 42.
42-4
The area between Pike Lake Trail and County Road 18 on
the north side has high potential for a planned mixed-use
area, including commercial, light industrial uses
(office-showroom and "high-tech" research-development and
assembly), and multi-residential.
The Agricultural Preserve status which holds the land
together, the size, the access andthe gateway potential
(see below) are conducive to a quality planned
development that can serve as an employment center and a
neighborhood commercial hub.
Sites for corporate headquarters and locally-oriented
shopping are feasible. One or more fine dining
establishments would be supported by the commercial and
residential population.
A major retail shopping center may be incorporated with
Page 11
a planned developmm~; b~t ~the sa~e ~areful planning
mentioned esrli~l~i~t~ 'covnty Road 42 and
County Road 83 area'applie~. Thorough market analyses
and traffic studie~ :are critical.
Caution is also in order 'hare, as in Area 42-3: if
county Road 21 is extended t~ths north, it will be the
dominant c~munity g&teway~ if it is not extended, then
both the short-tam and long-ter~ i~paot~ of the new
Bloomington-Ferry Bridge opening will be in this area,
i.e., along County Road 18. This will be the gateway to
the City.
Integration of a variety of house styles and residential
densities is very feasible inthe north and west portions
of this area.
42-5 The corner of the. northmastqumdrant of the intersection
with County Road 18 has po~ential as a neighborhood
commercial center would be api~opriate.
The in~ersection, ;which includes Crest Avenue from the
south, is conducivetolocally'-'orientedserwi~es. Access
w~11 be from County Road 18 and from future internal
circulation from the north and east. The focus should be
toward the west and southwest and not along County Road
42.
82-1
The ~rsa on the south sideof the highway, from a point
east of the Ju~=tionwithHe~erdLake R~ed(CountyRoad
81) to west of County Road 83 (e~ce~ded}, ham potential
for low-intensity co~mercial uses including destination
entertairm~nt and recreation uses.
The area access will be shared with thenew com~unity
center on the north side. Om could i~lude a theater
complex, golf driving range, art gallery, and conference
center. Incidental~oow~er~ial uSes=ouldinclude one or
two eating establishments and'prOfessional offices.
82-2 The area on the south side,: from county Road 83
(extended) to the west side of~Fr.em°nt Avenue has
potential for light indUStrial and nOn retail commercial
(professional and l~ase~ offi'c~ complmxes).
Strip develolment Should bediscouragedin favor of large
lot single user or clustered use development. Shared
access and internal circulation should be planned and
used.
Page 12
82-3 The land on the north side, from the east line of the
Shakopee Mdewakanton Dakota Community land to the west
line of the Wilds outlot, has potential for light
industrial or commercial office use.
One or two substantial developments should be planned and
the zoning should not allow retail or other traffic
intensive uses. Shared access and parking should be
encouraged.
County Road 83
83-1
This site is adjacent to the Mystic Lake Casino to the
north. It has commercial potential due more to its
unique location and the neighboring land use, than to its
location on the highway.
A planned development with leisure and hospitality uses
would be appropriate. A conference center would be a
possible featured use.
Integrated residential development would be compatible,
especially in the west portion. High density housing--
rental or owner-occupied--would be complementary with to
the large employment center that is developing in the
area.
Trunk Hiahwav 13
13-1
This site is bounded by 170th Street (County Road 12) on
the north and the commercial potential is for a
neighborhood center with a mix of retail and service
establishments.
Access should be from 170th Street and highway-oriented
uses and high traffic generators should be discouraged.
Pedestrian access should be planned from the nearby
residential areas.
13--2
The area around the intersection with 160th Street has
commercial potential in the form of redevelopment and in-
fill with uses that have improved access and enhanced
site aesthetics.
The area could be upgraded to be a planned gateway to the
Town Center, especially for west bound travellers.
Page 13
Preliminary Chanae~ to Land Uu .Plan MaD
The questions and guidelines in Section I should help with
selecting preferred areas of develol~aent opportunity. The focus at
~hia stage should be on ~rea~ rather than specific parcels (there
are a few exceptions where the d~siqnated area is a single parcel).
The preci, se delineation of sites for development is an important
exercise ~hat follows this general planning phase.
Land Use Guide Plans should - be abroad brushn and the
boundaries on the Land Use Map should respect major natural and
~an-Bade features, but should not be drawn to design sites or
reflect private ownerahip.~ ~on~ng Maps delineate districts along
property and right-of-way lines, generally fol lowing the
corresponding areas on the Land Use Guide Plan map.
Section III describes methods the city can adopt to describe
intend land uses beth on the map and in the text of The Plan. The
COmmercial and industrial sections of The Plan can establish
categories which distinguish one class of commercial use from
another, for example.
The task for the City at this stage is to contemplate the
available information, in ter~mo~ related concerns about community
development trends, and toidentify crees that appear to address
the perceived needs.
The work product will hopefully reflect an initial consensus
about ultimate uses in the chosen areas. This will be noted for
purposes of the next task. The designation of areas and preferred
uses can be modified and even abandoned as the planning process
continues. It is important to realize that, for now, both
undesired and desired uses should be identified.
The next task is to conduct Several basic technical analyses
of the preliminary map changes and direc~ion from~ the City. The
studies include= transportation system testing and preliminar~
recommendations for plan changes by the City's transportation
consultant~ an evaluation of utility availability and capacity
which can be directed by the City Engineer and may involve some
consultant assistance, depending upon the complexity and extent of
the preliminary changee~ and a review of available envirormental
information about thenatural festures and development constraints
of the designated sites which can be initiated by City staff but
which may require coneultant technical assistance.
Narket feasibility today and to~orro~
A marketing analysis by a qualified consultant is needed to
respond to the following questions about the feasibility of the
designated additional commercial and industrial land. The study of
the selected areas and preferred uses would be in the context of
Page 14
both full development and development by 2010.
What level of regional, community, and neighborhood non-
residential development can the City realistically
expect? Is there a rule-of-thumb balance between the
amount of non-residential uses and other uses?
What are the impacts on the City by the non-residential
development and related market influences in the
surrounding jurisdictions?
Is the non-residential development
preliminary City findings feasible?
areas viable for the uses?
envisioned by the
Are the designated
What level of development and what uses would be
reasonable for the designated areas, within time frames
of 2010 and ultimate development?
What special efforts, if any, should the City undertake
to attract and support construction of the feasible
developments?
What considerations should the City have about the
possible holding period between the time when land is
ready for development and when development is feasible?
The market analysis of the selected areas and uses will
provide the City with expertise that is needed for realistic and
sound planning decisions. The conclusions may indicate that the
city should re-evaluate its vision of future development, just as
it may indicate the perceptions about the need for more diverse
land uses are accurate.
Evolution of
will occur as the
efforts.
potential development to development Prospects
Council confirms specific goals and planning
Page 15
The following are recommended changes to The Plan and, as
appropriate, to the Zoning Ordinance and to City policies. They
represent planning principles which were used to determine
feasibility of commercial and industrial land uses for the areas
identified in Section II.
These reco~ended enhancements of the Land Use Plan and of
ordinances and policies can be implemented notwithstanding the
final determination of th. how much commercial and industrial land
is added.
New and amended text forT he Plan, Zoning Ordinance, and other
regulations is described later in this section and will be prepared
in the proper public hearing format as this project progresses.
city reaction to these recommendation is importantand it will be
solicited during the study sessions.
The Comprehensive 2010 Ptan's 'Cow~ercia! Development
Plan" (Exhibit 1) and "Indtmtriml Development Plan"
(Exhibit 2)should be revised to include, among other
things, a statement of purpose for the classification,
the locationcriteris, the mini~tm di~ension and other
standards to be implemented through zoning and other
regulations~ and they should list and describe all the
districts the City deems necmmsary, e.g., the
"Commercial" classification might inclnde "Retail",
"offide=Service#, and mHighwa~-BxlsinesS" di~tricts.
Each of the "Businesm# and#Industrial~ zoning districts
should be rooted in the Comprehensive Plan and clearly
distinguished fro~ one another in the Plan and in the
Zoning Ordinance.
All development, o~her than bona fide agricultural uses
includ~ngrura!~inglefa~lyho~e~, should.be restricted
to land that has mun~oipal senitaL~f sewer and water and
public road access.
Sanitary sewer and,.mmter line~ and publio efta.ts should
be planned and installed according 1;o City plans, so
urban develolment is sequential, orderly, and
anticipated, not sporadic and scattered. Optimum use
should be ~ade ofinfra-structure before services are
extended.
City POlicY shOUld'be to avoid "spot" land use guiding
and zoning.
Page 16'
10.
11.
12.
Conditional rezoning actions that limit approvals to
specific uses or ownership should be avoided. Policies
should recognize that, once land is rezoned any use
allowed by the Zoning Ordinance in the new district, may
be established on the property; and, that the person who
develops the land may be someone other than the applicant
who sought the rezoning. Planned Unit Development
agreements may have conditions mutually agreeable to the
developer and the City.
Zoning districts should be as exclusive as practicable,
i.e., the residential zones should exclude virtually all
non-residential uses, and vice-versa. The Ordinance may
allow for a mix of uses within qualified developments
through the Planned Unit Development or similar
techniques.
The Zoning Ordinance should allow Planned Unit
Developments with non-residential uses.
Effective transition between different and incompatible
land uses should be defined and required in both the
Comprehensive Plan and Zoning Ordinance. Compatible and
incompatible land uses should be identified.
City development policies should recognize that
contemporary environmental regulations and city design
and density standards can dispel fears that: (1)
residential development is less harmful to the natural
features than non-residential development; (2) all non-
residential development is incompatible with residential
development; or, (3) higher density residences negatively
impact low density neighborhoods.
The Comprehensive Land Use Guide Plan and map should
represent the official vision of the highest and best
uses of all land in the City. The vision may be of the
City at ultimate and full development, or it may be for
an interim period through a specified year, say 2010. A
Land Use Plan designation of "Agriculture," means the
best use is one that conforms to the City plans and
regulations for agriculture. The "Commercial"
designation means the proper use would be one that
conforms with the requirements for a business activity.
Zoning Regulations should restrict develoDment in the
rural service area by allowing only limited uses and
rural density in a district designated "Agriculture" or
the equivalent, until City utilities and public roads are
available. Then, land can be rezoned to the urban
district that corresponds to the designation in the
Comprehensive Plan.
Page 17
13.
14.
Criteria for eveluatAng npglications to' a~nd the Land
Uae Guide Plan (to reclassify land from one use to
another), ehould ~ be adop~ and used es, standard
prooedure (See Exh~J~tt 3). Consistent use of this method
will help the City avoid a trend of approving incremental
changes which can set an undesirable precedent for future
similar requests. The applicant is responsible for
providing the information and responses.
Criteria for evaluating application~ for large-ecale
co~aercial developments such as regional or community
shopping canters should be adopted and used as standard
procedure. Information and financial resources for
necessary studies (transportation and sewer impacts) are
l~OVided by the petitioner.
Page 18
2010 Plan Text Revisions
General Considerations: The draft 2010 Plan was reviewed to
identify areas where enhancements such as those listed earlier in
this section could be made. The review also anticipated that the
city will decide to include some additional land to the commercial
and industrial classifications.
Study sessions are planned to discuss this report and to
develop final direction about the concerns with non-residential
land supply. The conclusions of those sessions will be reflected
in new and revised text for various sections of the 2010 Plan on an
continuing basis.
There are several enhancements that have been identified by
this consultant since the 1993 neighborhood hearings. The purpose
is to clarify the conclusions and direction of The Plan which is a
legal document that is the policy basis of the land use
regulations, e.g., the Zoning Ordinance.
These will be presented for city review and approval,
notwithstanding the final determination on the issue of adding
commercial and industrial land.
Specific Considerations:
1. The purpose of Enhancement Item No. 1 is to provide distinct
commercial "districts" that will serve as the bases for
corresponding districts in the Zoning Ordinance, the primary plan
implementation device (Enhancement Item No. 2).
The draft 2010 Plan has a section entitled, "Commercial
Development Plan" which broadly describes several specific
geographic areas and which discusses planning concerns and
direction for those areas. The section culminates in the
Commercial Development Policies (Exhibit 1).
The draft 2010 Plan section introduces two land use districts,
"Planned Neighborhood commercial District" and "Planned Commercial
District." The content approximates the information that would be
included in a form for every Land Use District consistent with
Enhancement Item No. 1 recommended above.
An example of the revised format is shown on Exhibit 4; it is
for one of several districts that will be defined and which may
include material in the 2010 Plan, i.e., the two new districts.
The location criteria is a key feature, since land use plan
"districts" typically can be established throughout the community
at locations where the criteria are met. While a special district
might be provided for a unique area, such as Town Center, it is
more common and appropriate to view planning and zoning districts
Page 19
as use categories that are assigned to geographic areas where the
City finds the uses may be allowed.
This example would be used for other "districts" that would
accommodate retail business, highway-orientedbusinesses, shopping
centers, the Town Center, and others as needed.
2. The Industrial Development Plan section will be similarly
formatted~ there will likelybe two districts. A distinction will
be made between an "Industrial Park" that may include office and
other business uses also found in one or more co~mercial districts,
and a "Business Park" which will be found in a commercial district
and which would not include manufacturing or distribution uses that
are allowed in the Industrial District.
3. The Commercial Development and Industrial Development Policies
will be modified to reflect the current City Council positions
developed as this project concludes.
Page 20
Zonina Ordinance A~end~ents
Revisions to the Business District and Industrial District
standards are being drafted as a continuing phase of this project,
and draft amendments will be refined as the study sessions with the
City are concluded.
Ordinance provisions need clarification and should reflect
consideration of multiple business zones based upon factors
including, but not limited to topography, density, location,
business use types and needs, and architectural and landscaping
standards.
The scope of the draft revisions has been defined by:
City Council study sheet of February 15, 1994,
"Business Zoning District Concept Proposal;
b. City Councilmember Greenfield's April 4, 1994
memorandum, "Adoption of Business Zones;
The City Comprehensive Plan, the draft "2010 Plan",
and the Zoning Ordinance;
d. The recommended enhancements and changes and
described in this section.
The Zoning Ordinance, by State Law, must be consistent with
the Land Use Guide Plan; thus the revisions developed for The Plan
should be eventually reflected in amendments to the ordinance.
Public Affairs Consulting has compiled standards, successfully
used by other communities, which can be researched when draft
amendments are prepared that will address other non-residential
development issues: transition among different uses, landscaping
and building aesthetics, limited rural development, planned unit
development uses, evaluation of large-scale commercial
developments, and parking requirements.
Page 21
City 2010 Plan
EXHXBIT I
COMMERCIAL DEVELOPMENT POLICIES:
The C%ty of Prior Lake is committed to strengthen and
rehabilitate the existing commercial districts along the
Highway 13 Business Strip in order to insure its viability.
In order to protect public investments, the City of Prior Lake
will require that future commercial development proposals be
submitted with an analysis of existing and approved commercial
development in the vicinity, existing vacancy rates for
similar uses, a traffic study, and other information required
by the City.
Future commercial activities shall be organized into planned
group concentrations as opposed to commercial organization in
a linear fashion. New strip commercial development shall be
prohibited within the City of Prior Lake.
Isolated commercial development within residential and
industrial zones shall not be allowed unless it can be
demonstrated that they are compatible with the neighborhood
commercial designation and that they are intended to serve the
immediate needs of the area only.
Neighborhood commercial centers shall be designed to promote
their role as a neighborhood activity center. Therefore
community meeting rooms, exhibition apace, cultural
facilities, and education functions will be appropriate in,
and adjacent to, shopping areas.
Commercial activities shall be located and designed to
benefit from the access afforded by the circulation system
without impairing the capacity of the system. To accomplish
this, the City of Prior Lake will require a traffic and
circulation study for all future commercial development. In
addition the n,,mher of access points and curb cuts shall be
limited to maintain efficient traffic operation.
The city of Prior Lake should adopt policies or standards
addressing drive-through commercial facilities.
Page 22
City 2010 Plan
EXHIBIT 2
INDUSTRIAL DEVELOPMENT POLICIES:
The City of Prior Lake will concentrate industrial development
in Areas 3 and 5 as identified in this section.
e
The city of Prior Lake will develop standards for all
industrial and planned industrial districts which will be
incorporated into the Zoning Ordinance.
3e
The City of Prior Lake will initiate the termination of the
Agricultural Preserve designation for the land north of C.R.
42 and west of C.R. 18.
The City of Prior Lake is committed to the development of a
program to revitalize, renovate, and generally improve the
visual impression of the older, under-utilized industrial area
located north of C.R. 21.
Industrial zoned districts shall be protected from
encroachment by other land uses that would diminish the supply
of available industrial land within the City, except under
limited circumstances where retail uses might serve the
daytime population within the industrial district.
The City of Prior Lake will actively pursue communications
with the Shakopee Mdewakanton sioux Community to develop
joint business/office park opportunities.
Page 23
Public Affairs Consulting
May, 1994
EXHIBIT 3
CRIT~fA FOR EVALUATION OF REQUESTS TO AMEND LAND USE ~u~gE PLAN
A response is required for each item, including "Not Applicable,"
if that should be the case. Findings that are predominantly
negative or that are not clearly supportive indicate there is a
reasonable basis to deny the request. Any weight assigned to
certain items should result from a policy decision by the City
Council.
1. Are the Land Use Plan location criteria of both the
existing and the proposed classifications satisfied by the
site? Explain.
2. Can the site be reasonably developed under the current
classification? If not, explain end demonstrate.
3. Is there a lack of undeveloped property in the same class
as that proposed? If so, is the proposed expansion supported
by the Comprehensive Plan guidelines for the community's
development? If not, explain the need for expansion of this
class.
4. As a result of this action, will there be an adverse
impact upon: (a) other undeveloped property, in the class
proposed for this site~ (b) other developed property in the
proposed classification, which might be subject to
redevelopment or rehabilitation?
5. Describe how the proposal has merit beyond the interests
of the owner or prospective developer. What is the public
need or community benefit.
6. Demonstrate that the new use classification would be the
highest and best use of the property.
7. Describe the impact the proposed change will have upon:
the transportation system (traffic generation)~ municipal
sanitary sewer (volume and capacity) system~ water supply
(consumption rate) system~ storm drainage and ground water
management systems (on-site storage requiraments)~ municipal
parks and open space~ and housing (nu~er and type of u~its
that would be realized or not realized).
8. Describe the likely impact of the proposed development
upon: utility system charges~ current and future special
assessments~ current and future property tax assessments~ and
per capita-based financial aids.
Page 24
Public Affairs Consulting
May, 1994
~/A~PL~ OF CO~CIAL DIS~ICT
EXHIBIT 4
Name:
Commercial--Limited Business (CL)
Purpose:
Uses in this classification are expected to develop
with the highest design and performance standards.
Permitted uses include professional and
administrative offices; research-development
facilities (exclusive of manufacturing and
distribution); limited and restricted service
facilities such as restaurants where meals are
ordered and consumed indoors on the premises,
hotels, and other businesses that have limited
contact with the general public.
Retail sales are not permitted and may be allowed
as a conditional use where the activity is clearly.
incidental to and part of a permitted use.
Professional service offices may be appropriate in
freestanding buildings; but clustering in office
parks or planned unit developments should be the
feature of this district.
High development standards would allow office park
developments in this district to be located
adjacent to the high density residential projects.
This relationship has advantages of combined
parking, common open spaces, residences near work,
and reversed directions for commuters at the peak
hours.
Maximum Lot Coverage
By All Buildings:
25% (with all yard and parking
minimum standards met or exceeded)
Minimum LotArea:
1 acre
City Utilities:
Required in all areas
Corresponding Zoning: B-1 (office-Limited Business)
Type of Development:
High amenity office facilities,
e.g. , administrative,
executive, medical, research,
professional, and governmental
Page 25
Location Criteria:
offices without
services, and
institutions.
merchandising
financial
Research and development
laboratories, exclusive of
manufacturing and distribution.
Specific non-retail allowable uses
should be listed in the Zoning
Ordinance as either permitted or
conditional uses, consistent with
this classification.
At or near the intersections of
arterials for both access and
exposure.
Hay adjoin planned'industrial park
and high density residential
developments
In conjunction with major commercial
centers (with or without retail
establishments)
The high amenity development
standards renders CL areas very
suitable as "gateways" to the City
Page 26