02-05-01 PC5775 Wayzata Boulevard, Suite 555, St. Louis Park, MN 55416
Telephone: 952.595.9636 Facsimile: 952.595.9837 nac@winte,rnet.com
PLANNING REPORT
TO: Otsego Mayor and City Council
Otsego Planning Commission
FROM: Daniel Licht
DATE: 31 January 2001
RE: Otsego - Meadowlands PUD; Concept Plan
FILE NO.: 176.02 - 01.04
BACKGROUND
S&Z Investments and Bulow Incorporated have submitted a concept plan for development
of 75 single family lots and one outlot entitled Meadowlands" on 99 acres located east of
Nashua Avenue, across from City Hall. The residential lots are proposed to be served by
a community septic system and individual wells. As part of this project, the applicant is
proposing to install storm water drainage facilities that would correct flooding from the
pond on the subject site to developments to the east. This property was the subject of a
similar concept plan for 50 residential lots submitted by Bridgeland Development, which
was approved by the City in 1999. Bridgeland Development never pursued the necessary
development stage applications.
The subject site is within the Urban Service Area Reserve designated by the 1998
Comprehensive Plan Update and is zoned A-1, Agricultural -Rural Service District. the
property is also within the Shoreland Overlay District as the on-site pond is designated as
a natural environment lake identified by the DNR. Implementation of this project requires
an amendment to the Comprehensive Plan, base district rezoning and PUD -CUP to
accommodate development within the Shoreland District. The applicant is only requesting
PUD concept plan approval at this time.
Exhibits:
A. Subject Site
B. Project Narrative
C. Shoreland Tier Analysis
D. Concept Plan
ANALYSIS
Comprehensive Plan. The subject parcel is currently within the Urban Service Area
Reserve, which allows a maximum density of four units per 40 acres. To allow the
proposed project, an amendment to the Comprehensive Plan is required. Because the
project does not include sanitary sewer or water, designating the property as being within
the Sanitary Sewer Service District is likely not appropriate. The other alternative is to
include the property within the Long Range Urban Service Area, which is designated over
existing one acre unsewered developments. The subject parcel abuts the Long Range
Urban Service Area on a portion of its north boundary and the length of its east boundary.
Because of the financial commitments to developing a municipal sanitary sewer system,
the 1998 Comprehensive Plan Update is specific that all new residential development
should occur within the sanitary sewer service district and connect to municipal services.
The Comprehensive Plan did not anticipate further expansion of the Long Range Urban
Service Area, but did expect that remaining large parcels within these areas may be
subject to further development pressure. Further development of the Long Range Urban
Service Areas was only to be allowed if at least one of the following criteria could be
satisfied. These criteria may also be used to. determine if it is advisable to expand the
Long Range Urban Service Area to accommodate this project:
a. Completion of an unfinished street network.
Comment. The proposed development would allow for the extension of 90th Street
from O'Brien to Nashua Avenue. The project may also allow for the future
extension of 87th Street from Vassur's Oak Grove Addition.
b. Such development shall have the result of the correction or improvement of a
demonstrated area drainage problem.
Comment. There is an existing drainage problem during high rainfall seasons where
the lake on the subject property overflows and floods existing residential areas to
the east. As part of this project, the applicant is proposing to correct this issue by
paying for and installing storm water drainage facilities on the subject property and
Nashua Avenue, as previously recommended by the City Engineer.
C. The dedication of lands to a legitimate public purpose (i.e., desired parks, public
facility structures, right-of-way dedication, etc.).
Comment. The project provides for the dedication of necessary storm water
drainage facilities and right-of-way for the extension of public streets.
Planning Report - Meadowlands PUD Concept
Page 2
The potential benefits of the project are listed above following each criteria. The Planning
Commission and City Council must evaluate the public benefit of the storm water
improvements and right-of-way extensions in determining if the proposed development is
appropriate in terms the provisions of the Comprehensive Plan regarding development
outside of the Sanitary Sewer Service District.
Zoning. The DNR has indicated that this project may be considered to be "sewered"
under the Shoreland Ordinance, based upon the community septic system. The Shoreland
Ordinance requires that sewered lots have a minimum lot size of 40,000 or 20,000 square
feet (riparian/non-riparian). None of the proposed lots are riparian, or have frontage
directly on the waterbody. The Shoreland Ordinance also allows utilization of PUD
flexibility for lot size and width standards provided that the overall project density is
consistent with certain criteria. The Shoreland Ordinance specifies a process for
calculating density within the District by defining development tiers within set distances
from the Ordinary High Water Mark. The maximum number of dwellings allowed within any
given tier is calculated by dividing the area of the tier by the minimum lot size. The number
of dwelling units allowed within a tier may be transferred to other tiers that are farther away
from the waterbody. Based upon a tier analysis of the subject property, the City could
allow as may as 340 units (Exhibit C) based on a schedule of bonuses.
The proposed development would require an amendment to a zoning District that would
allow for single family uses and the proposed density. Because the DNR is considering
would consider the site to be sewered and the design is based upon the PUD provisions
of the Shoreland District, staff suggests use of a PUD District. The applicant has
indicated that all lots would be at least approximately 20,000 square feet in size with 100
foot minimum lot width. Our office's expectation is that the setback requirements within the
PUD would be the same as imposed by the R-4 District. Section 20-3-2.F of the Zoning
Ordinance outline the specific criteria to be considered by the Planning Commission and
City Council relative to the PUD Concept Plan and pending rezoning application:
The proposed action's consistency with the specific policies and provisions of the
official City Comprehensive Plan.
Comment. The Planning Commission and City Council must evaluate the benefits
of the PUD flexibility based upon the concept plan. The main issue to be resolved
is the number of lots that the City may allow. Although the PUD District will allow
significantly more lots, the City must balance the number of lots with its policy of
encouraging the majority of development within the sanitary sewer service district.
The previous concept plan approved by the City Council for the subject property
was specifically limited to approximately 50 lots on this basis, which is 25 less than
proposed now. Although no specific reason was given for why that developer did
not pursue their project further, development costs, including park dedication and
the cost of the storm water drainage improvements, were likely an issue.
Planning Report - Meadowlands PUD Concept
Page 3
From a design standpoint, the concept plan responds well to the layout of the
property and its limitations. The proposed street layout provides maximum
exposure for lots backing up to the lake, while not locating within the first tier.
Further, the proposed street layout will serve to minimize through traffic and calm
speeds within the neighborhood.
The use of the community septic system is certainly positive as it eliminates the
need for additional lot area to accommodate primary and secondary septic sites on
every lot. This results in a more efficient use of the land, which will also likely have
less of a future environmental impact than if the project were proposed with 80, 000
sq. ft. lots and standard septic systems. Further, the use of the community utility
would allow for efficient connection to municipal sanitary sewer, should that service
ever become available to the area.
2. The proposed use's compatibility with present and future land uses of the area.
Comment: The subject property is surrounded to the east and northeast to by one
acre, non-sewered development, which are in the Long Range Urban Service Area.
Properties to the north and south are designated for continued agriculturaUruralland
uses as part of the Urban Service Area Reserve. City Hall is west of the subject
site. The development of single family lots on the subject site would be compatible
with these existing and planned uses.
3. The proposed use's conformity with all performance standards contained in the
Zoning Ordinance (i.e., parking, loading, noise, etc.).
Comment: The proposed project will be required to meet all applicable provisions
of the Zoning and Subdivision Ordinance. One issue identified at this concept stage
is that the blocks including lots 1-34 and 61-75 exceed the maximum 1,200 feet
allowed by the Subdivision Ordinance. The lengths of the blocks are due to physical
barriers created by existing development and the lake making conformance with this
requirements not possible.
4. The proposed use's effect upon the area in which it is proposed.
Comment: The proposed development may be expected to have a positive effect
on the area by correcting the existing drainage problems, completing the existing
street networks. Potential negative impacts to the area involve potentially siphoning
development interest from the Sanitary Sewer Service District.
5. The proposed use's impact upon property values of the area in which it is proposed.
Comment: Although no study has been completed, no negative impact to area
property values is anticipated to be caused by the project.
Planning Report - Meadowlands PUO Concept
Page 4
6. Traffic generation by the proposed use in relation to the capabilities of streets
serving the property.
Comment: The concept plan provides for all lots to access of an internal public
street that intersects with Nashua Avenue across from the south City Hall access.
The concept plan also provides for an extension to O'Brien Avenue, which the
applicant will be required to pay for and construct across the City owned parcel. A
future connection to 87th Street is also possible from the terminus of the cul-de-sac.
It must be noted that this cul-de-sac extends longer than the 500 foot limit allowed
by the Subdivision Ordinance. However, based upon the natural limitations of the
property and the possible extension to 87th Street in the future, its length is likely
acceptable.
A short street has been extended to the north property line of the subject site. This
street will provide for future intra -neighborhood connections. The previous
developer had submitted a sketch plan illustrating how the design of a subdivision
of the adjacent parcel to the north could accommodate a future street extension to
the rear lots of the Great River Acres subdivision, allowing for potential re-
subdivision.
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.
Comment. Of primary concern in allowing development outside of the sanitary
sewer service district is the potential future need for municipal sanitary sewer
service. The proposed community septic will allow for potential future connection
to the municipal systems. Further, the applicant and staff have discussed that the
system would be turned over to the City after the project is nearly built out, which
will ensure on-going maintenance. An equally important consideration is that the
development is located in close proximity to other developed areas requiring City
services such as street maintenance, park facilities, police/fire protection, etc.
Park Dedication. Based on the proximity of the subject site to Prairie Park, the City is
likely not interested in land dedication as part of this subdivision. As such, the applicant
would be required to make a cash fee dedication in lieu of land at the time of final plat
approval. Park and trail dedication issues are subject to further comment from the Parks
and Recreation Commission.
Historic Preservation. At their meeting on January 25, 2001, the Historic Preservation
Commission discussed information that there may be grave sites on the subject property.
Apparently, portions of the subject site were used as a cemetery prior to relocation to the
present site of the Otsego Cemetery. Additional information will need to be obtained
regarding this issue prior to submission of a development stage application.
Planning Report - Meadowlands PUD Concept
Page 5
Utilities. A narrative describing the proposed community septic system has been
submitted (Exhibit B). The applicant is proposing that water service would be obtained
from individual wells. The design of all utilities is subject to reviewand approval of the City
Engineer.
Grading and Drainage Plans. No grading and drainage plans have been submitted as
part of the Concept Plan. These plans will be expected as part of a subsequent
development stage application and will be subject to review and approval of the City
Engineer.
CONCLUSION AND RECOMMENDATIONS
The decisions regarding the necessary Comprehensive Plan amendment and rezoning
applications will be made at the time of a future development stage PUD. The intent of the
concept plan PUD application is to give the developer input regarding the general nature
of the project. As such, approval of a PUD concept plan should be granted if City Officials
believe that the intended project, including the proposed number of lots, is appropriate and
consistent with the Comprehensive Plan.
The primary issue with the project is the expansion of the Long Range Urban Service Area
to allow additional urban scale development outside of the Sanitary Sewer Service District.
The proposed concept plan is does satisfy policies of the Comprehensive Plan for further
development within the Long Range Urban Service area. Use of PUD flexibility for this
development may also be appropriate depending on the perceived value of the proposed
public improvements and the use of common septic utilities, which would provided for
efficient land use and future connection to municipal utilities. If the Planning Commission
and City Council make a similar finding, our office would recommend approval of the
application as outlined under Option A below.
A. Motion to approve a PUD -CUP Concept Plan for development of 50 single family
lots with communal septic and water systems, subject to the following conditions:
1. An application for rezoning, preliminary plat and development stage PUD
approvals shall be submitted within six (6) months from the date of concept
plan PUD approval.
2. All lots shall conform to the performance standards of the R-4 District and
Shoreland Overlay District.
3. The long term ownership and maintenance of the community septic system
shall be the responsibility of the City of Otsego.
Planning Report - Meadowlands PUD Concept
Page 6
4. The Historic Preservation Commission research addition information
regarding possible grave sites on the subject property and report on the
potential significance to the City Council.
5. Park and trail dedication shall be subject to review by the Parks and
Recreation Committee and approval of the City Council
6 A utility plan is submitted for the design of the proposed septic systems,
subject to comment by the DNR and approval of the City Engineer.
7. Grading and drainage plans shall be submitted as part of the development
stage PUD application, subject to review and approval of the City Engineer.
8. Comments of Other City Staff.
B. Motion to deny the requested concept plan based upon a finding that the
application is inconsistent with the Comprehensive Plan.
C. Motion to table the application (specific direction should be provided to the
applicant regarding necessary revisions and/or action).
pc. Mike Robertson
Judy Hudson
Andy MacArthur
Larry Koshak/Ron Wagner
George Sanford
Chris Bulow
Myrtle LuConic
Planning Report - Meadowlands PUD Concept
Page 7
A-
N/. C
ON THE GREAT RIVER ROAD
MEADOWLANDS PROPOSED
WASTEWATER TREATMENT SYSTEM
In general, the proposed system is to consist of a municipal sanitary sewer system followed
by an onsite central treatment facility. The sewer system will be designed to accommodate
a future connection to the City's wastewater infrastructure. The onsite treatment facility is
three part system consisting of a series of septic tanks, a Recirculating Sand Filter (RSF)
and an in -soil dispersal field.
The residential units are connected to the sewer main by means of 4 inch service lines.
The gravity sewer main conveys sewage to a lift station. From the lift station, the effluent
is pumped through a force main to the onsite treatment facility. Pre-treatment of the
effluent occurs in a series of septic tanks which facilitate settlement of solids and grit
screening in addition to providing for flow attenuation. The next phase of treatment is the
Recirculating Sand Filter.
The Recirculating Sand Filter consists of a network of perforated drain pipes placed in a
bed of select graded sand. The effluent is periodically dosed through the upper portion of
the pipe/sand bed structure on a time controlled frequency by means of duplex
recirculating pumps. As the effluent flows through the sand media, aeration and aerobic
biological activity leading to purification of the wastewater takes place. Gravity collection
pipes at the bottom of the bed capture the filtered liquid to be returned to the recirculating
tank. The recirculating tank provides an anoxic environment wherein bacterial activity
breaks down nitrates in the stream. After several cycles through the sand filter and tank,
the effluent is discharged to an in -soil dispersal field.
Design of the Recirculating Sand Filter system size and cycle frequency is dependent upon
the volume and strength of the wastewater flow. A properly designed and operated
Recirculating Sand Filter system will provide a high degree of wastewater treatment that
will meet or exceed current Environmental Protection Agency standards. In addition,
significant nitrogen and phosphorous removal takes place during the anoxic segment of
the treatment. This benefit is not available in a standard in -soil treatment system
installation.
EXHIBIT B
Oak Ridge Pond Preliminary Plat, Otsego
square feet/lot
size
base units.
allowed
max. density
increase
total
units
Tier 1
1,029,333/40,000
25
50%
37
Tier 2
1,033,333/20,000
51
100%
102
Tier 3
1,100,000/20,000
55
200°x6
165
Tier 4
1,072,000/20,000
12
200%
36
TOTAL
143
340
EXHIBIT C-2
EXHIBIT C-1
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Jt;N.31.2001 4:22PN N0.326 P.2
Hakanson
Anderson 3601 Thurston Avenue, Suite 101, Anoka, MN 55303
Assoc., Inc. Phone: 763/427-5860 Fax: 763/427-0520
January 30, 2001
Chris Bulow
Bulow, Inc.
PO Bax 506
Elk River, MN 55330
RE: Meadowland; PUD
Concept Plan
Dear Chris:
We have the following comments on the Concept Plan for Meadowland;
P.U.D. in Otsego, Minnesota:
1. The cul-de-sac in the northwest corner of the plat must have the
roadway centered on the bulb of the cul-de-sac.
2. Both connections toward the existing development should be
shown. The 87th Street connection in the southeast corner of
the plat should be dashed in and labeled as a possible future
connection. The 90th street connection must be shown as a
road to be constructed as part of this plat by the developer of
Meadowland.
3. Wetland issues were addressed in my letter to you dated
January 24, 2001.
4. The wastewater treatment system will need to be reviewed to
determine compliance with City Ordinances and MN PCA
Permit Conditions.
The concept appears to be acceptable, however, the secondary
site location is a considerable distance from the proposed
treatment site. Failure of the #1 site would cause additional
infrastructures to be installed for the relocate. We assume that
only a drain field would be necessary for the alternate site,
Distance set back from the DNR wetland needs to be
considered in placing the system,
Civil cf"MHnicipal ��
Engineering
Land Sxn+rying for
JAN.31.2001 4:23PM N0.326 P. �{
We also assume the sewage collection system will be In the
streets and will comply with the City's Engineering Manual for
details of pipe and manholes.
5. Stormwater overflow from the DNR pond must be re -directed to
Otsego Creek Watershed.
The major portion of the site is now in the Otsego Creek
Watershed. The rest of the area in the northeast of the property
flows to the North Mississippi Watershed.
If you have any questions or comments you may contact me at 763/427.
5860.
Sincerely,
Hakanson Anderson Associates, Inc.
cc: Mike Robertson, Admin.
Judy Hudson, Clerk
Lawrence G. Koshak, City Engineer
Jon Bogart, PE, Bogart, Pederson & Assoc,
Dan Licht, NAC
Hakanson
Page 2 Anderson
1Wa0119hara4 DOCSIMunictpar%AOTSE!GO12231,pt2231cb1.doo Assoc., Inc.
JAN.31.2001 4:23PM
January 24, 2001
Chris Bulow
Bulow, Inc.
PO Box 506
Elk River, MN 55330
Re: Meadowland's Wetlands
Dear Mr. Bulow:
NO. 326 P., 4
I have reviewed the Wetland Conservation Act and have determined the
following information to help you in your Wetland Mitigation Plan for the above -
referenced project.
If the wetlands that are impacted as part of the 9& Street construction are
wetland type 1, 2 or 6 and are outside of the shoreland wetland protection zone,
you would have 2000 sq. ft. of de minimis.
Assuming that 90th Street impacts more than 2000 sq. ft. of wetland, you would
be required to mitigate (In kind) everything at a 2:1 ratio. A rough approximation
by myself has determined a mitigation need of approximately 0.7 acres. (You
would need to verify these numbers)
In order to allow this fill, you will be required to foilow the Wetland Replacement
Plan sequencing as shown in Minnesota State Rules, Chapter 8420.
Sincerely,
Hakanson Anderson Associates, Inc.
Ronald J. Wagner, PE
RJW:dlc
cc: Lawrence G. Koshak, PE
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