Item 3.1
3601 Thurston Avenue
Anoka, MN 55303
763.231.5840
TPC@PlanningCo.com
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PLANNING REPORT
TO: Otsego Planning Commission
FROM: D. Daniel Licht, AICP
REPORT DATE: 11 March 2021
60‐DAY DATE: 24 April 2021
RE: Otsego – Mississippi Landing; PUD Concept Plan
TPC FILE: 101.02
BACKGROUND
Modern Construction of Minnesota, Inc. has submitted a PUD Concept Plan for a mixed‐use
development of 12.58 acres located east of TH 101 and south of 90th Street. The subject site
consists of two lots with an area of 6.01 acres and one outlot with an area of 6.57 acres. The
concept plan proposes development of multiple family dwellings, hotel, retail, office, and
service commercial uses within the two commercial lots and improved public open space and
docks on the Mississippi River within the outlot.
PUD concept plan applications are processed in accordance with Section 11‐36‐4.C of the
Zoning Ordinance to provide comment to the developer as to the acceptability of the land use.
The City requires that PUD concept plan reviews include a public hearing before the Planning
Commission so that surrounding property owners have an opportunity to be informed about
the project and ask questions or provide comment. A public hearing to consider the PUD
Concept Plan application has been noticed for the Planning Commission meeting on15 March
2021 at 7:00PM.
Exhibits:
Site Location Map
PUD Concept Plan
Aerial illustration
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ANALYSIS
Comprehensive Plan. The Comprehensive Plan guides the subject site for commercial land
uses. The Multiple Family Housing Study approved by the City Council on 14 September 2020
recommends amending the Future Land Use Plan to guide the subject site for mixed‐use
development including residential and commercial land uses. The proposed mixed of
residential and commercial uses shown on the proposed concept plan is consistent with the
recommendations of the Multiple Family Housing Study.
Consistency with the Comprehensive Plan will require that the developer provide for
construction of both the residential and commercial land uses proposed by the concept plan.
Initial development of the residential uses proposed by the concept plan without corresponding
timely construction of the planned commercial uses would compromise the intent of the
Comprehensive Plan to provide for a mixed‐use, not solely residential development. The
Planning Commission and City Council may require a phasing plan as a condition of a PUD
Development Stage Plan and preliminary plat approval ensuring that the developer performs as
to construction of both residential and commercial land uses within the subject site.
One element of the Multiple Family Housing Study that is to be implemented through the
Comprehensive Plan that also must be considered relative to the proposed concept plan is the
intent to limit the number of multiple family dwelling units within the City to not more than 10
percent of the total housing stock. The existing housing information included in the Multiple
Family Housing Study was up to date through 2019. Adding the construction that occurred in
2020, multiple family dwelling units as a percentage of the total housing stock is 7.6 percent.
Zoning. The subject site is zoned PUD, Planned Unit Development District. Allowed uses within
the PUD District currently include only those permitted, conditional, interim, and accessory
uses provided for within the B‐3, General Business District. The uses proposed by the concept
plan are all allowed uses within the B‐3 District except multiple family dwellings.
Section 11‐91‐2 of the Zoning Ordinance makes any use allowed within the zoning districts
established by the Zoning Ordinance as potentially allowed uses within a PUD District.
Allowance of the multiple family dwellings as proposed by the concept plan would require
approval of an amendment to the existing PUD District concurrent with application for PUD
Development Stage Plan and preliminary plat approval.
Surrounding Uses. The subject site is surrounded by the existing and planned land uses shown
in the table below. The proposed mixed‐use development would transition to the uses
developed within Waterfront East to the north through Outlot A. The Highway 101 Market is
also compatible with the proposed use, although screening of the outdoor storage area should
be considered, but would be difficult to implement given the proposed building heights
illustrated on the concept plan.
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Direction Land Use Zoning Existing Use
North Commercial
Park
PUD District Highway 101 Market
Carrick’s Landing
East ‐‐ ‐‐ Mississippi River
South Rural A‐1 District Mississippi Riverwood campground
West ‐‐ ‐‐ Trunk Highway 101
Buildings. The concept plan illustrates six buildings on the subject site (with Buildings 1, 2, and
5) attached. Only two of the buildings have an identified use: Building 3, which shown as a
hotel and a 6,000 square foot commercial building labeled as a drive through opportunity at the
northwest corner of the subject site.
Building materials are not discernable from the concept plan. Multiple family buildings are
subject to the exterior finish requirements established by Section 11‐17‐4.C.3 of the Zoning
Ordinance and commercial buildings are subject to the exterior finish requirements within
Section 11‐17‐4.D.1 of the Zoning Ordinance. The primary distinction between the two sets of
requirements would be the minimum amount of masonry materials required, which 50 percent
of the wall area for multiple family buildings and 65 percent of the wall area for commercial
buildings. A PUD Development Stage Plan application for the proposed development would
define the type and percentages of required materials for the buildings shown on the concept
plan in consideration of the existing requirements established by the Zoning Ordinance.
The concept plan illustrates that Building 1 and the northwest building are one story structures,
Building 2 is five stories in height, Buildings 3 and 4 are each four stories in height, and Building
5 is eight stories in height. There also are rooftop greenspaces, patios, and recreation facilities
illustrated atop Buildings 1, 2, 3, and 4. The existing zoning of the subject site allows buildings
up to three stories in height. The Holiday Inn, Guardian Angels Riverview Landing senior
housing, Parkview Grand apartments, The Village apartments, and Riverbend North apartments
are the tallest multiple family or commercial structures in Otsego at four stories in height. The
proposed height of the buildings shown on the concept plan may be allowed through a PUD
District if the Planning Commission and City Council approve.
Lot Requirements. Multiple family uses are currently required to provide a minimum of 2,500
square feet of lot area per dwelling unit, with potential reductions of up to 500 square feet for
buildings constructed adjacent to commercial area and with underground parking. The 2020
Multiple Family Housing study recommended allow development of apartments within mixed‐
use areas with a requirement of 2,000 square feet per dwelling unit, which is a density of
almost 21 dwelling units per acre. The number of apartments alone proposed by the concept
plan equals 1,442 square feet of lot area per dwelling unit or approximately 30 dwelling units
per acre. The intensity of a mixed‐use development that includes residential and commercial
uses may best be regulated through a maximum floor area ratio, which is the measurement of
building floor area in relation to area of the lot that the building is located upon (floor area ÷ lot
area):
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The developer has not provided sufficient information with the concept plan to determine the
floor area ratio for the proposed development based on the 6.01 acre area of the two lots or
the total 12.58 acre area including Outlot A. The starting point for a discussion of the intensity
of uses on the entire 12.58 acre subject site should be a floor area ratio of 0.7 or 384,000
square feet of net building area. The maximum floor area ratio allowed for the subject site
would be subject to review by the Planning Commission and approval of the City Council with
the application for PUD Development Stage Plan and preliminary plat approval.
Setbacks. Setbacks may be established for a PUD District and modified by a PUD Development
Stage Plan. Based on the setback requirements established for the Waterfront East PUD
District to the north, we recommend a 30 foot setback from Quantrelle Avenue and at least a
10 foot setback from the north and south lot lines. The east lot line abutting Outlot A provides
separation from the Mississippi River and any applicable setback requirements related to the
Wild, Scenic and Recreational River District. The buildings within Waterfront East have been
allowed to build to the lot line with the outlot encompassing the regional stormwater basin and
the same approach is appropriate for the subject site to maximize the buildable area outside of
the Wild, Scenic and Recreational River District.
Access. The subject site is accessed via Quantrelle Avenue. Quantrelle Avenue is an existing
two‐lane street with shoulders and concrete curb having a width of 32 feet. There is no
sidewalk on Quantrelle Avenue, which should be added as a condition of the development to
provide pedestrian connectivity. Quantrelle Avenue intersects 90th Street at a four‐way
intersection (with stop sign control on all but the west leg of the intersection) to the north of
the subject site. The only access to the area east of TH 101 at the CSAH 39 intersection is via
90th Street. City staff recommends that application for PUD Development Stage Plan and
preliminary plat approval include a traffic study prepared at the developers cost by a qualified
Transportation Engineer to estimate the traffic generated by the uses shown on the concept
plan, as well as the existing and potential uses east of the TH 101 and CSAH 39 interchange, to
evaluate the capacity of the public streets in the area to accommodate proposed development
of the subject site.
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Off‐Street Parking. The off‐street parking that must be provided within the subject site would
be the cumulative number of stalls calculated in accordance with Section 11‐21‐8 of the Zoning
Ordinance. There is the likely occurrence as a mixed‐use development that there would be
business interchange and varied peak demand for off‐street parking that must be considered in
determining the total number of parking stalls necessary for the uses proposed by the concept
plan. To this end, the traffic study to be provided by the developer with the PUD Development
Stage Plan and preliminary plat application should also provide for an analysis of parking
generation and demand so as to determine the number of parking stalls to be required for the
proposed development.
Outlot A. Outlot A is subject to the provisions of the Wild Scenic Recreational River District
adopted by the City as Chapter 92 of the Zoning Ordinance in accordance with Minnesota Rules.
Private recreational uses are a conditional use within Subdistrict C of the WSRR District subject
to management plan standards subject to DNR review and City Council approval, including:
Structures within Outlot A must be setback 75 feet from the Ordinary High Water Level
and 30 feet from the bluff line.
Impervious surfaces are limited to 25 percent of the area of Outlot A.
Common dock structures may be allowed in accordance with DNR rules, which require
in part seasonal removal of the docks during winter.
Vegetative cutting within 100 feet of the OHWL and 20 feet of the bluff line is restricted
to selective removal of trees larger than four inches in diameter at four feet above
grade to maintain a continuous canopy
Outlot A includes a City park easement for a trail along the Mississippi River extending south of
Carrick’s Landing and out to Quantrelle Avenue. The City may require dedication of a park
easement over all of Outlot A as a condition of approval for a PUD Development Stage Plan and
preliminary plat approval based on the change in land use and significant increase in intensity
of use of the two lots within the subject site. The intent of the park easement would be that
Outlot A would remain a privately owned‐publicly accessible open space.
Utilities. The proposed development would be served by City sewer and water utilities. There
are existing trunk sewer and water lines within Quantrelle Avenue adjacent to the subject site.
The proposed development would be subject to payment of utility availability and connection
charges based on the residential equivalent connection rate for the uses shown on the concept
plan and City fee schedule in effect. All utility issues are to be subject to review and approval
by the City Engineer as part of a PUD Development Stage Plan and preliminary plat application.
The City Engineer would need to complete a study of utility capacity for the proposed
development based on more specific information regarding the square footages and uses
proposed. Water flow capacity for fire protection or additional accommodations at the building
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will be need to be reviewed especially if eight stories are allowed as pressure to the top floors
may be compromised necessitating booster fire pumps. Sewer capacity is a more primary
concern as the property is to be served by an existing lift station in place at the south terminus
of Quantrelle Avenue. This lift station and force main was sized based on an estimated 3.5
RECs/acre of sewer flow for the two lots, or 21 RECs. The proposed number of apartments is
more than 18 times the number of RECs estimated for the subject site. The cost of upgrading
the utilities for the proposed development would be expected to be a developer responsibility
unless the City Council agrees to a different arrangement.
Grading Plan. The eastern portions of the two lots and all of Outlot A are within the Floodway
zone along the Mississippi River. As shown in the image below, the Floodway effects the
location of Buildings 1, 2, and 5. Fill cannot be placed within the Floodway zone without a 1:1
replacement of flood storage capacity.
Areas of the two lots outside of the Floodway are also within the 100‐year Flood Plain
designated as Zone AE). The flood plain may be filled to allow for construction of buildings the
elevation of the buildings and area 15 feet surrounding it are not more than 1 foot below the
regulatory flood elevation and lowest finished floor at least feet above the regulatory flood
elevation. Public street and private drive access to the proposed development must also not be
more than two feet below the regulatory flood elevation.
The proposed concept plan illustrates a below grade parking garage accessed near the south
line of the subject site. Construction of a below grade parking garage in this area may be
problematic due to floodplain development requirements and water table issues. The same
issues caused the enclosed parking at Guardian Angels Riverview Landing to be constructed at
grade.
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The developer must provide a grading plan to elevate the site to meet the requirements of the
Zoning Ordinance regarding the floodplain. The grading plan must also include stormwater
management calculations for the treatment storage and rate control of stormwater runoff
generated within the subject site. Outlot A is bisected north‐to‐south by a drainageway
overlaid by a drainage and utility easement to provide an outlet for the City regional
stormwater basin to the north within Outlot A, Waterfront East. The outlet for the regional
stormwater basin must be maintained as part of the grading plan for the subject site to the
point at which the stormwater is discharged to the Mississippi River. All floodplain, grading,
drainage, and erosion control issues are to be subject to review and approval of the City
Engineer with application for PUD Development Stage Plan and preliminary plat approval.
RECOMMENDATION
The proposed PUD concept plan for Mississippi Landing is a high‐level view as to the potential
scope of development. The Planning Commission should provide comment to the developer as
to the acceptability of the proposed land uses; the ratio of residential and commercial land uses
as part of a mixed‐use development; the number, massing, and height of proposed buildings;
and response to the proposed privately maintained amenities along the Mississippi River.
Significant technical issues must be resolved prior to an application for PUD Development Stage
Plan approval including floodplain and water table issues, completion of a traffic study and
parking analysis, evaluation of sewer capacity for the proposed development, and compliance
with Wild and Scenic Recreational River regulations. The feedback provided by the Planning
Commission is intended to advise the developer as to whether the City has sufficient interest in
the proposed development to warrant the investment in time and expenses to resolve the
technical issues of the project.
POSSIBLE ACTIONS
A. Motion to recommend support for the proposed PUD Concept Plan for Mississippi
Landing subject to the following comments:
1. The proposed development shall require the following applications to be
processed in accordance with the provisions of the City Code:
a. Comprehensive Plan amendment revising the Future Land Use Plan to
guide the subject site for mixed‐use land uses.
b. PUD District amendment to allow multiple family dwellings.
c. PUD Development Stage Plan.
d. Preliminary plat.
e. Final plat.
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2. The exterior finish requirements for principal buildings shall be determined by
the PUD Development Stage Plan based upon the provisions of Section 11‐17‐
4.C.3 and Section 11‐17‐4.D.1 of the Zoning Ordinance.
3. The maximum height for principal buildings shall not exceed four stories unless
approved by the City Council as a PUD Development Stage Plan.
4. The maximum floor area ratio proposed development shall not exceed 0.7 unless
approved by the City Council as a PUD Development Stage Plan.
5. Development of the subject site shall be setback 30 feet from Quantrelle Avenue
and 10 feet from the north and south lot lines; there shall be no setback required
from lot lines internal to the preliminary plat of the subject site.
6. The developer shall submit with application for PUD Development Stage Plan
and preliminary plat approval a Traffic Study analyzing trip generation, street
capacity, and off‐street parking demand for the proposed development, subject
to review and approval of the City Engineer.
7. Development of Outlot A shall comply with the provisions of the WSRR District.
8. Outlot A shall be designated by the PUD Development Stage Plan as privately
maintained – publicly accessible open space be overlaid by a park and trail
easement in satisfaction of Park Dedication requirements for the proposed
development required by Section 10‐8‐15 of the Subdivision Ordinance.
9. All utility issues shall be subject to review and approval of the City Engineer;
utility availability charges shall be paid at the time of final plat approval; utility
connection charges shall be at the time a building permit is issued for each
principal building.
10. All floodplain, grading, drainage, and erosion control issues shall be subject to
review and approval of the City Engineer.
B. Motion to not support the concept plan based on a finding that the request is
inconsistent with the Comprehensive Plan.
C. Motion to table.
c. Adam Flaherty, City Administrator/Finance Director
Audra Etzel, City Clerk
Ron Wagner, City Engineer
David Kendall, City Attorney
Site Loca tio n
461 ft
Overvi ew
Legend
Roads
C SAHC L
C TYC L
MUNIC L
PRIVATEC L
TWPC L
Highw ays
Intersta te
State Hwy
US Hwy
City/T ow nship Limits
c
t
Parcels
T orr ens
Mississippi Landing Mixed-Use Development
General:
-380 Market rate apartment units ranging from studios to penthouses.
-40 Hotel units onsite with shared amenities offering multiple unit types including kitchens.
-Main level commercial/retail/office pedestrian courtyard with up to 65,300 sqft of commercial space
-Drive through opportunity on site up to 6,000sqft of space
-Restaurant onsite with rooftop dinning and banquet/meeting room facilities
-Roughly 275,000sqft of environmentally friendly, state of the art mixed use space
-500+ underground parking spaces with parking ramp options if additional capacity is needed
-Privately owned and operated building by local resident and business owner includes the apartments, hotel units, restaurant, coffee
shop, event center, and recreational equipment rentals. Synergies make this possible to do at a high level and yet present a compelling
and affordable option to the community.
Amenities
-Multi-layer green roofs with tenant gardens, workspaces, rooftop lounge pool
-full ground level resort style indoor/outdoor pool and hot tub area with zero entrance for kids
-Fitness facilities: gym, yoga rooms, sauna, running track, river access rental equipment
-Incorporating many small private nooks/workspaces for people that work from home or kids doing distance learning
-Rooftop lounge pool with infinity edge on the river- major wow factor to highway traffic
-Private courtyards, gathering, and information spaces
-Single bill living to include all bills: utilities, TV, phone, Cable, trash. Huge quality of life improvement.
Green building initiatives
-TSTUD framing (first mixed use building in the nation)
-Solar panel installations on all roofs, exploring Geothermal HVAC potential with the river and DNR
-Onsite raised be gardens for all tenants
-Vertical gardens along the façade
-Led lighting package with automatic light sensors, triple pane windows,
-All rooftops will be green roofs
-capture and store rainwater for onsite irrigation, filter for saltwater pool use
Public Greenspace & Amenities
-Public greenspace and commercial courtyards in ecologically and pedestrian friendly “downtown style” development
-Rooftop public river views, public gathering spaces
-Electric car and bike charging stalls in the parking ramp and along the street.
-Expand the existing city trail along the river and add new public amenities
-Public heated underground parking 100% free
-Public street/ramp parking if needed, bike lockers, rideshare pickup/drop off locations
-Expansion of existing park to include dock access on the river, river overlook, picnic tables, amphitheater, pond feature, and so many
more opportunities.
-Winter wonderland with ice skating, sledding hills, warming stations, holiday light displays, snow shoeing and more
-Dedicated greenspace area for farmers market and other public events
-Public courtyard, gathering, and information space with public restrooms and access to the underground parking
---Commitment to be the first Autonomous Vehicle Operation in the region----- *update city ordinance.