01-02-97 PCNW, A f NORTHWEST ASSOCIATED CONSULTANTS
'INC COMMUNITY PLANNING - DESIGN - MARKET RESEARCH
PLANNING REPORT
TO: Otsego Mayor and City Council
Otsego Planning Commission
FROM: Bob Kirmis / David Licht
DATE: 16 December 1996
RE: Otsego - Greninger Property Rezoning
FILE NO: 176.02 - 96.26
EXECUTIVE SUMMARY
Background
Mr. Michael Emberton, on behalf of Allied Mortgage of Brooklyn Center Inc., has requested
the rezoning of approximately 283 acres of land located north and south of County Road
39 between Kahler and Kadler Avenues (south of Island View Estates subdivision).
Specifically, the applicant wishes to rezone the described property from A-1, Agricultural
Rural Service to R-3, Residential Immediate Urban Service.
To accommodate the proposed rezoning, the following approvals are necessary:
1. Amendment to the Comprehensive Plan to:
A. Change the land use designation of the land south of County Road 39 from
agricultural to low density residential.
B. Include the subject property in the immediate urban service area.
2. Rezoning of the subject property from A-1, Agricultural Rural Service to R-3,
Residential, Immediate Urban Service
5775 WAYZATA BOULEVARD, SUITE 555 ST. LOUIS PARK, MINNESOTA 554 1 6
PHONE 6 1 2-595-9636 FAX 6 1 2-595-9837
At this point, the applicant is only seeking to determine the City's position regarding the
acceptability of the proposed land use upon the subject property. Should the City
determine that the proposed land use is appropriate for the area and approve the
requested Comprehensive Plan amendment and rezoning, a formal subdivision application
would be forthcoming.
Attached for reference.-
Exhibit
eference:
Exhibit A: Site Location
Exhibit B: Detailed Site Location
Exhibit C: Urban/Rural Service Area Map
Exhibit D: Land Use Plan
Recommendation
It is the opinion of our office that development of the subject site is, at this time, premature
and would set an undesirable precedent. Specific concern is the continued allowance of
one acre residential developments in areas of the City where sanitary sewer service has
neither been planned for nor is anticipated. Matters of land use appropriateness, however,
remain matters of City policy to be determined by City officials. Should the City find that
the proposed low density residential use of the property is appropriate at this time, we
would recommend approval of the Comprehensive Plan amendment and rezoning request.
ISSUES ANALYSIS
Comprehensive Plan Amendment
As noted previously, the following changes to the Comprehensive Plan are necessary to
accommodate the proposed use:
1. Expansion of the immediate urban service area boundary to include the subject
property.
2. Amendment to the City's Land Use Plan to suggest low density residential
development upon the subject site (area south of County Road 39).
Urban Service Area/Land Use Plan Amendment. As shown on Exhibit C, the subject
site currently overlays both the City's rural service district and the long range urban service
district. The rural service district is intended to define preferred areas of the City where
agricultural activities may occur. The long range urban service district, on the other hand,
is intended to serve as a transition between urban and rural areas of the City.
2
To accommodate the proposed development (residential densities), it is necessary to
expand the boundaries of the immediate urban service area to include the subject + 283
acre property in question. The geographic delineation of the immediate urban service area
is based in part on an ability, at some future point, to accommodate public sanitary sewer
service.
As shown on Exhibit D, a portion of the subject property is located south of County Road
39 and is designated for agricultural use & the Land Use Plan. Therefore, it is also
necessary to amend the Land Use Plan to suggest low density residential land use (in
place of agricultural uses) upon the property in order to accommodate the proposed
development.
Evaluation Criteria. In consideration of Comprehensive Plan amendment requests,
Section 20-3-2.F of the Zoning Ordinance directs the City to consider the possible adverse
effects of the proposed amendment. Generally speaking, a decision regarding the
amendment should be based upon, but not be limited to, the following:
1. The proposed action's consistency with the specific policies and provisions
of the official Comprehensive Plan.
Obviously, the proposed low density residential use of the subject property is not
consistent with the agricultural use suggested on the Land Use Plan (south of
County Road 39). The existing agricultural designation south of County Road 39
is intended to reflect and maintain an existing cohesive land use pattern and
assumes that sanitary sewer service is not available to the area.
North of County Road 39, long term low density residential development has been
suggested. Such land use is intended to provide for an infilling of existing
development in the area (south of Island View Estates) and recognizes the
residential desirability of the land's proximity to the Mississippi River.
While must goals and policies of the Comprehensive Plan tend to discourage the
proposed low density residential use, there are a number of goals and policies
which could be construed to support the proposed use.
The following is a listing of goals and polices which both discourage and encourage
the proposed use upon the subject property:
3
-Goals/Policies Which Discourage the Use.-
Protect
se.Protect and preserve prime agricultural lands and the economic viability of
farming operations.
• Permit growth on a phased basis providing for a logical extension of urban
growth and related community services.
• Boundary limits for urban expansion shall be clearly delineated and non -
farming type uses shall be prohibited from encroaching into agricultural
areas.
• All development proposals shall be analyzed on an individual basis from a
physical, economic and social standpoint to determine the most appropriate
uses within the context of the community as a whole.
• Land use development shall be related to and reflect transportation needs,
desired development and community priorities.
• Encourage continued but orderly growth in Otsego.
• The spread of small scale, non-farm subdivisions in agricultural areas shall
be prohibited.
Goals✓Policies Which Encourage the Use.-
Land
se.Land use allocations are to be balanced with economic market demands and
service availability.
• All development proposals shall be analyzed on an individual basis from a
physical, economic and social standpoint to determine the most appropriate
uses with the context of the community as a whole.
• Land use development shall be related to and reflect transportation needs,
desired development and community priorities.
• Once established, geographic land use designations and related zoning
classifications shall be changed only when it can be demonstrated that such
modifications are in the best interest of the community on a long range
perspective and such changes will promote land use compatibility and
predetermined goals and policies of the Comprehensive Plan.
M
The housing needs of the entire community shall be addressed and
responded to.
• To the extent possible, a variety of housing types, styles and choices is to
be created and maintained.
2. The proposed use is or will be compatible with present and future land uses
of the area.
In considering the appropriateness of a particular land use, it is generally beneficial
to examine neighboring land uses. The following is a listing of land uses which
surround the subject property and their zoning designations.
Direction
Land Use
Zoning
North
Single Family Residential
R-1
South
Agricultural
A-1
East
Agricultural/Single Family Residential
A -1/R-3
West
Agricultural
A-1
While the proposed use may be considered "compatible" with uses north of County
Road 39, low density residential development is not considered compatible with
agricultural uses which lie south of the County road. The introduction of residential
uses to a predominantly agricultural area raises specific concerns in regard to the
proposed use's compatibility with typical characteristics of farm type uses (i.e.,
animal odors, machinery noise, dust, etc.).
3. The proposed use conforms with all applicable performance standards.
While the City has not received an application for subdivision, any development
upon the subject site would be required to comply with applicable zoning and
subdivision standards.
4. The proposed use's effect upon the area in which it is proposed.
Measurable effects of the proposed use cannot be determined until such time as
a detailed development plan is submitted. According to Minnesota Rules (Part
4410.4300, Subp. 28.c) projects resulting in the permanent conversion of 80 or
more acres of agricultural land to a more intensive land use (outside the
Metropolitan Council's urban service area) are required to prepare an
Environmental Assessment Worksheet (EAW).
5
5. .-The proposed use's impact upon property values of the area in which it is
proposed.
There is no evidence that the proposed use will depreciate area property values.
Based on comparable situations, a depreciation of area property values is not
anticipated.
6. Traffic generation of the proposed use in relation to capabilities of streets
serving the property.
The traffic generation by the proposed use and related impacts will be dependent
on the number of residential dwelling units. As such, this criteria cannot be fully
evaluated until such time as a formal development application is received. In this
regard, the need for improvements to adjacent streets will be evaluated when a
subdivision proposal has been formulated.
7. The proposed use's impact upon existing public services and facilities
including parks, schools, streets, and utilities, and its potential to overburden
the City's service capacity.
The proposed development will clearly impact the City's service capacity. Future
utility service, police/fire protection, snow plowing, etc. must be considered and
evaluated by the City.
While residential development is acknowledged to exist north of the subject site, the site
lies far removed from the City's immediate urban service area (area which could potentially
be served by sanitary sewer). It is therefore the opinion of our office that the proposed
development is, at this time, premature.
Sanitary Sewer Service. Recognizing the environmental concerns associated with
private on-site septic systems, a primary concept of the City's Comprehensive Plan is to
promote the development of lands which may someday be served by sanitary sewer. A
case in point is the current geographical configuration of the immediate urban service area
which reflects a conceptual sewer plan. While the ability to implement such plan as
currently depicted is, at this time, questionable. The underlying concept of focusing
development where such service may ultimately be provided is considered sound planning
practice.
Because the site in question lies far removed from such service area, our office questions
the advisability of further allowing private on-site septic systems in an area where no
opportunity for correction (via sanitary sewer) exists. Also to be considered is the
precedent which such decision may have upon development applications in other
"outlying" areas.
0
Rezoning
In conjunction with the Comprehensive Plan amendment request, the applicant has also
requested a rezoning of the subject property from A-1, Agricultural Rural Service to a R-3,
Residential Immediate Urban Service designation.
Applications for rezoning are subject to the same evaluation criteria as the previously
discussed Comprehensive Plan amendment request (Section 20-3-2.17 of the Zoning
Ordinance).
Should the City determine that low density residential use of the subject property is
appropriate and approve the requested Comprehensive Plan amendments (Land Use Plan
and immediate urban service area inclusion), a basis would be established to approve the
rezoning request. While our office has significant concerns over the appropriateness of
the proposed use, rezoning matters are considered policy decisions to be determined by
City officials.
CONCLUSION
Decisions relating to land use appropriateness are considered matters of City policy. In
an objective review of the City's amendment criteria, it is the opinion of our office that
development of the subject property is, at this time, premature.
PC: Elaine Beatty
Larry Koshak
Andy MacArthur
Michael Emberton
7
EXHIBIT A - SITE LOCATIOr
EXHIBIT B - DETAILED SITE LOCATION
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Agricultural Highway Commercial (134 ac.)
Land Use Low Density Residential Industrial (536 ac.) -
Medium/High Density Residential (229 ac.) Park/Public Facility PREPARED BY:
Plan
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SCALE IN MILES
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SEPTEMBER 1989
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. . . . . . . . . .
WFOGHT COUNTY
SLIRVEYO(IS OFFICE 7 25-89
35 65th ST
3
62nd ST
60th ST
Agricultural Highway Commercial (134 ac.)
Land Use Low Density Residential Industrial (536 ac.) -
Medium/High Density Residential (229 ac.) Park/Public Facility PREPARED BY:
Plan
Neighborhood Commercial wm m Land uses dependent upon Hwy.
orthwest
101 upgrade and sewer availibility f rNXc,,,'
1FAssociated
Consultants, In