1995-06-07 Prelim Plat & Rezoning Planning Report
'I~N~C
Northwest Associated Consultants, Inc.
U R BAN P LAN N I N G . DES I G N . MAR K E T RES E' ARC H
PLANNING REPORT
TO:
Albertville Mayor and City Council
Albertville Planning Commission
FROM:
Elizabeth Stockman / David Licht / Dan Sjordal
DATE:
7 June 1995
RE:
Albertville - Kenco Preliminary Plat and Rezoning
(Parkside Third Addition)
FILE NO:
163.06 - 95.05
EXECUTIVE SUMMARY
Background:
The applicant, Kenco, has submitted a 107 lot preliminary plat for the subdivision of single family
residential parcels on property owned by Roman and Donna Becker located just southwest of the
Highway 37 and Highway 19 intersection ~ the City (see Exhibit A). The preliminary plat
encompasses 70.7 acres and the current zoning is a combination of B-3, Highway Commercial
District and A-I, Agricultural Rural District. The applicant wishes to rezone the area shown upon
the plat as single family lots to R-l, Residential Single Family. In addition, two parcels of 4.77 and
6.93 acres, have been retained along Highway 19 for future development. It is unclear what the
properties are ultimately intended for, although commercial and/or multiple family residential are
likely possibilities.
Attached for reference:
Exhibit A - Site Location
Exhibit B - Preliminary Plat
Exhibit C - Grading, Drainage and Erosion Control Plan
Exhibit D - Sanitary Sewer and Watermain Plan
Exhibit E - Phasing Plan
Exhibit F - Comprehensive Plan - Land Use District 1 Map
Exhibit G - Zoning Map
5775 Wayzata Blvd.. Suite 555. St. Louis Park, MN 55416. (612) 595-9636-Fax. 595-9837
"
Recommendation:
The applicant's request for preliminary plat and rezoning approval for the stated single family housing
development raises several complicated issues with regard to premature development such as
Comprehensive Plan consistency, sanitary sewer service, existing property zoning/future land use,
property access, and subdivision layout/connection to surrounding areas.
While in concept the subdivision appears to be workable, the number of unresolved issues which
remain outstanding at this time, makes it impossible for our office to make a formal recommendation
on this matter. Thus, we leave the decision on the matter as a policy decision to be made by the City
Council. Given the likelihood that this development would become precedent in the currently rural
area of the City, instigate additional development and likely shape the future land use configuration
for areas west of Highway 19, it is imperative that all issues as highlighted herein be seriously
considered in association with comprehensive planning criteria and standard ordinance procedures
which form the basis for City Council direction in this matter.
There are three potential outcomes which could result from City review and consideration of the
submitted subdivision proposal:
1. The request could be denied based upon its status as a premature subdivision by the standards
outlined in the City's Subdivision Ordinance:
a. Lack of adequate drainage.
b. Lack of adequate water supply.
c. Lack of adequate roads or highways to serve the subdivision.
d. Lack of adequate waste disposal systems.
e. Inconsistency with Comprehensive Plan.
f. Lack of ability to provide publi<; improvements.
g. Inconsistency with the Minnesota Environmental Quality Board or Minnesota
Pollution Control Agency standards and/or failure to gain approval of the required
Environmental Assessment Worksheet.
2. The request could be tabled until the receipt of additional information indicates that the noted
issues can be resolved.
3. The request could be approved if the City Council is satisfied with all aspects of the proposed
plat, pending resolution of any outstanding issues. within a timely manner which are imposed
as conditions of project approval Should the City's decision be to approve the request, it is
recommended that approval of the proposed subdivision be subject to the following
conditions:
2
..
a. An amendment to the Comprehensive Plan is approved to accommodate the proposed
single family development across the majority of the property and pending commercial
or multiple family development along Highway 19.
b. Rezoning of the subject property to R-l is approved as shown on the plat to
encompass a portion of the currently zoned B-3 land, or the area ofR-l development
is specifically limited to areas currently zoned A-I.
c. Full consideration and decision is made on the intended land uses and zoning adjacent
to Highway 19 and the acceptability of the lot configurations in this location are
documented.
d. Sanitary sewer layout is changed to show construction of a trunk line as extended
from 57th Street or as otherwise approved by the City Engineer.
e. The required Environmental Assessment Worksheet is completed, approved by the
State Pollution Control Agency and is received by the City prior to final plat
approval.
f. All grading, drainage and utility issues must be subject to review and approval by the
City Engineer, including connection of sump pumps within the internal plat blocks
directly to the sewer lines to be installed in these locations.
g. Easements or outlots should be established over all wetland and/or drainage areas.
h. The plat is revised to show 57th Street as an eighty foot wide collector street and
direct lot frontage from single family lots is significantly reduced or eliminated.
1. A local street stub is included within the plat to provide for future connection to the
Westwind subdivision to the north.
J. A Corps of Engineer's approved wetland mitigation plan is submitted which allows
for the construction of streets and lots within wetland areas.
k. Lots in Blocks 1 and 5 should be increased in size to show at least 150 feet in depth
to accommodate the required screening and landscaping in this location and the
required landscape plan is submitted.
1. Temporary cul-de-sacs must be provided where future streets will be extended.
m. A cash park dedication fee of $53,500 is accepted by the City Council or varying park
dedication requirements are discussed and decided upon prior to approval of the
preliminary plat.
3
Lot Area:
Lot Width:
(Interior)
(Comer)
12,500 square feet
90 feet
100 feet
n. Revised plans are submitted which address and resolve the issues outlined herein.
o. Any other comments from City staff.
ISSUES ANALYSIS
Comprehensive Plan Consistency. The City's Comprehensive Plan, formulated in 1989, designates
the area inclusive of Parkside Third Addition Plat as rural land to be held in reserve for future
development. The Plan instead focused on immediate single family development areas on the east
side of Highway 19. In recent months, however, the City has realized the need to pursue changes to
some portions of the Comprehensive Plan to respond tQ contemporary City issues. While a
visioninglbrainstorming session has recently occurred among various City advisory committees and
staff to "kick-off' the process, the City Council has not formally adopted any amendments to the Plan
which indicate one way or the other whether a development such as Parkside Third Addition is the
most appropriate land use for this area.
Of associated concern is the Comprehensive Plan designation of a future collector street (57th)
between Main Avenue and Kadler Avenue or Jason Avenue (County Highway 118) as a main east-
west corridor in the City. While the developer has provided for roadway connection in this regard,
there are several issues which raise concern relative to its sizing and placement that will be discussed
later in this report.
Zoning. The subject property is currently zoned a combination of A-I, Agricultural Rural and B-3,
Highway Commercial. The existing B-3 zoned land is identified as encompassing 600 feet on the
west side ofthe Highway 19 right-of-way, while the remainder ofthe property is agriculturally zoned.
The applicant has proposed to rezone all of the A-I land and a portion of the B-3 land to R-l,
Residential Single Family. As mentioned previously, two parcels of 4.77 and 6.93 acres, have been
retained along Highway 19 for future development. It is unclear what type of use the properties are
ultimately intended for and what zoning is proposed. Differing opinions among Council members
currently exist relative to the B-3 zoned area, which brings about additional questions relative to the
proposed development and again reinforces the need to amend the comprehensive land use map of
the City in order to properly guide development as it is pursued.
The proposed single family development is in compliance with the intent of the R-l District which
is to provide for exclusive low density single family detached residential units and directly related
complementary uses. The following lot area and setback standards must be met under the R-l
classificatio n.
4
Setbacks: (Front Yard)
(Side Yard interior)
(Side Yard comer)
(Rear Yard)
Building Height:
Lot Coverage:
35 feet
10 feet
20 feet
25 feet
25 feet
30 percent of lot area
All proposed lots are in conformance with lot area and width standards in the R -1 District and have
the potential of accommodating building pads which meet the required structure setbacks and building
height. Lot coverage, including buildings, driveways, or other non-impervious surfaces, must not
exceed 30 percent of the total lot area.
A major concern with the proposed rezoning of the property is the requested reclassification of about
a third ofthe B-3 zoned land along Highway 19 to R-l. This creates a serious problem, should the
City decide to promote business uses in this location. The direct lot access to Highway 19 would
not be permitted by Wright County due to the interference with the Highway 19/37 intersection and
leveVspeed of traffic. Thus, access must be off of the planned 57th Street, whereby the remaining
land area is insufficient to allow for optimum development of two businesses on either side of the
street. The distance from Highway 19 to the beginning of single family home development does not
allow for optimum lot configurations and options in site layout, but further limits the types and sizes
of uses that are able to develop here. The mix of commercial traffic with single family residential and
inadequate transition between the two uses is also of concern.
57th Street Collector. The 1989 Comprehensive Plan illustrates an extension of 57th Street as a
collector street running between Main Avenue and Kadler Avenue or Jason Avenue (County Highway
118) as a main east-west corridor in the City. While the developer has provided for roadway
connection in this regard, there are several issues which raise concern relative to its sizing and
placement that must be addressed prior to preliminary plat approval.
The proposed plat of Parks ide Third Addition shows 57th Street as a local street with a 60 foot right-
of-way rather than a collector street with the required 80 feet of right-of-way. A collector street
should not have any or very limited individual (direct) lot frontage and is intended to provide a spine
from which local streets make connection at intervals of no less than 500 feet. The layout of
proposed streets and lots as shown in Exhibit B ~ not conducive to the design of proper street
hierarchy as mentioned. The plat could function more successfully if the local streets were oriented
in a more north-south fashion. Additionally, with the expected number of vehicles per day using a
collector street such as 57th, it is less than desirable for residents to gain access from and front upon
this type of a road, not to mention the safety factors and added congestion that driveway access
would pose. It is the developer's responsibility to provide the City with alternative concepts which
address this design issue.
5
6
A second issue related to the placement of 57th Street was brought about by City Staff in a recent
meeting with the developer. The possibility of connecting 57th Street through to Jason Avenue
(within Albertville) rather than Kadler Avenue (within Frankfort Township) eliminates the need to
rely on the expansion of urban development in neighboring communities before through connection
can be made via 57th Street (development in this part of Frankfort Township is not expected for many
years). The connection and usage of another east-west street in the City is becoming increasingly
important and must be specifically addressed at this time. The position of 57th Street must be located
so as to provide the most benefit to expected development in the surrounding area and provide
through connection between other collector and arterial streets in the community.
Future Street Connection. A critical factor related to the vehicular circulation on the subject site
is future development of land to the west and east of the plat as well as connection to existing
development to the north. The developer has shown 57th Street to the western boundary of the plat,
although the alignment of this collector route should be discussed further as mentioned above. Two
local streets are proposed to allow for future connection to areas south of the plat and appear
acceptable. The developer has not, however, addressed to need to provide local street connection
to the Westwind subdivision to the north. In this location, a stub street is currently in place which
was intended to connect the neighborhoods, provide access to the still undeveloped Westwind Park,
and allow for development of the Roden property (between the Westwind and Kenco plats). While
the existence of wetlands in this location may require mitigation, this connection is viewed as crucial
for several reasons and requires utility connection along this alignment as well. Without a second
outlet from the Kenco subdivision, the plat will be land locked and literally creates a dead-end for
100+ homes. This poses significant emergency access and convenience concerns until such time as
through street connections can be made.
Wright County Highway Access. The Kenco plat gains its primary access via the 57th Street
connection to County Highway 19 and shows 50 feet of right-of-way from the centerline of the
highway. The Wright County transportation engineer will require review and approval of all aspects
of the plat, including additional right-of-way which may be needed for future upgrade ofthe road,
turn lanes, and intersection location. The scheduled 1996 reconfiguration of the Highway 37/19
intersection should also be evaluated as it relates to the proposed plat access.
Grading, Drainage and Utilities. The developer has submitted a grading, drainage and erosion
control plan (Exhibit C) and a utility plan (Exhib!t D) as required under the City's Subdivision
Ordinance. Of greatest concern with the proposed preliminary plat is the availability of sanitary sewer
service from eastern portions of the City and proposed utility connection as shown on the plat. The
plat shows sewer connection across Highway 19 from Barthel's Industrial Park as well as through
connection to the Westwind subdivision. The proposed plan, however, raises some concerns such
as the lack of lateral benefits, cost of construction through wetlands, additional maintenance by the
City and the need to pump waste several times before reaching the treatment plant. In order for this
option to work, the existing lift station on the south side of West wind would have to be upgraded and
a new lift station would have to be constructed on the far west end of the Kenco plat. Given these
factors, in addition to the cost of construction through wetlands, and the limited service area, the City
7
Engineer feels that a second option will serve the City better in the long run. An Environmental
Assessment Worksheet is required either way and allowance of the sewer service as shown by the
developer doesn't eliminate the need for a trunk line in 57th Street and therefore represents somewhat
of duplication in services.
The City Engineer has identified the second and optimum sewer connection option to be the
construction of a trunk line along the proposed 57th Street right-of-way from near Main Avenue,
across the Marx property, and into the Kenco subdivision on the west side of Highway 19. This
option would serve a greater area of future development, allow the majority of the Kenco plat to
flow by gravity thereby eliminating the Westwind lift station, and would allow for the property
owners along the trunk line to share in its cost rather than having to construct the trunk line on an
individual basis when development occurs. The provision of a utility easement would be necessary
from property owners to gain access across undeveloped land along the route of the proposed trunk
line. If the proposed development does not have an adequate waste disposal system in compliance
with the City Engineer's recommendation and if it is inconsistent with the policies of the
Comprehensive Plan and Zoning Ordinance criteria, the subdivision may be deemed premature.
The proposed grading of the plat will be done largely via mass grading techniques, given the gently
rolling nature of the property and lack of trees and appears to be generally acceptable. The City
Engineer has a concern over the proposed development of homes with full basements in an area with
significant wetlands. It was recommended that sump pumps be directly connected to sewer lines
installed along the back property lines oflots where water cannot quickly drain overland into wetland
and ponding areas. These areas (at the center of the plat) are shown on the grading plan to contain
french drain pipe, but should be upgraded per the City Engineer's recommendation where full
basements will be utilized. Easements or outlots should be established over all wetland and/or
drainage areas. All grading, drainage and utility issues must be approved by the City Engineer.
Wetland Mitigation. The proposed plat requires wetland mitigation in some areas for the
construction of portions of roads and lots in Block Six. While the developer has not provided a
wetland mitigation plan which outlines detailed measurements, areas of mitigation and sedimentation
ponds have been shown on the grading plan. With the provision of a stub road to the north of the
plat and change in plat layout, additional mitigation may become necessary. A plan will be required
which includes a minimum mitigation ratio of 2: 1 and should be submitted for City Engineer and
Corps of Engineers review and approval.
Screening and Landscaping. A landscape plan has not been submitted by the developer as will be
required. The area between the single family and business or multiple family development along
Highway 19 will require screening and physical separation via berms, fences, and/or landscaping.
In this regard, the lot depths of single family lots should be increased to a minimum of 150 feet of
depth to provide additional space for screening and landscaping. Also, homes which back up to 57th
Street should be buffered from traffic along this boulevard.
8
Park Dedication. The developer is required to meet the City's park dedication requirements as
outlined in Section A-600.15 of the Subdivision Ordinance. The proposed plat includes 15.32 acres
of designated park land, with only 4.39 acres of upland usable area. Park dedication requirements
should be discussed and decided upon by the City Council prior to approval of the preliminary plat.
The required area of land dedication would be 3.54 acres (5% of subdivision area) while the required
cash dedication would be $53,500 ($500 per lot). City Staff has discussed this matter and has
identified several concerns over the proposed park area included in the plat. While the size of the
proposed park is adequate, the configuration of the park area is not conducive to development given
the irregular, narrow shape and divided land areas on either side of 57th Street. Additionally, the
proposed park is in close proximity to the Westwind Park and has limited connection opportunities
given the number of adjacent wetlands. It appears that the size of the proposed park would allow for
only passive park use with the possibility of small play areas, however, the City has indicated a need
for more active playing fields and similar park activities. It is our recommendation that a cash
contribution be accepted from Kenco.
Home Construction. All building pads must lie a minimum of 1 ~ feet above the street grade. Al
homes constructed within the subdivision must be in conformance with design standards for single
family homes outlined in Section 110 of the City Zoning Ordinance.
CONCLUSION
The review of the Parkside Third Addition in relation to adopted Comprehensive Plan policies,
Zoning and Subdivision Ordinance standards contained herein has identified several complicated
issues. Given the number and degree of issues, our office has strictly identified the problem areas and
requested that the City and developer come to agreement on ways to address the plat's inconsistency
with the Comprehensive Plan, sanitary sewer service, existing property zoning/future land use,
property access, and subdivision layoutlconne<;tion to surrounding areas.
pc: Garrison Hale
Mike Couri
Pete Carlson
Kent Roessler, Kenco
Robert Roblin, Meyer-Roblin, Inc.
Wayne Fingalson, Wright County
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