HomeMy WebLinkAbout2017-04-06 TPC Memorandum EcU 4
TPC3601 Thurston Avenue N, Suite 100
Anoka, MN 55303
Phone: 763.231.5840
Facsimile: 763.427.0520
TPC@PlanningCo.com
MEMORANDUM
TO: Eric Johnson
FROM: Scott Richards
DATE: April 6, 2017
RE: Oak Park Heights — Comprehensive Plan 2040
TPC FILE: 226.10
As you are aware, the City Council, at their February 15, 2017 meeting, authorized the
work programs from TPC, Inc and Stantec to commence the Comprehensive Plan 2040
process. The Comprehensive Plan 2018 process will update and reinforce the goals,
policies and plans from the 2008 plan. Additionally, it will focus on the new issues and
challenges this community will need to focus in the next ten years.
At the April 13, 2017 meeting, the Planning Commission will focus on the following:
Issues
Please find attached the list of issues that were identified as part of the Comprehensive
Plan 2008. The Planning Commission should review these, discuss what has been
resolved in the last ten years from the list, and consider what new issues should be
identified. Also included are the issues maps from the plan. We will focus much of the
discussion at the April 13, 2017 meeting on issues.
Existing Land Use
Also, find attached the Existing Land Use Map from the Comprehensive Plan 2008.
The Planning Commission should carefully review this and determine if there have been
any specific changes over the past 10 years.
Pc: Julie Hultman
Oak Park Heights
Comprehensive Plan 2008 - Issues
INTRODUCTION
As an initial means of shaping the Comprehensive Plan, a Comprehensive Plan
Committee, representing a broad base of the community, was established by the City
Council. The list of the members is found on a previous page of this document. This
team provided the guidance and directives to formulate the Comprehensive Plan before
it was reviewed by the Planning Commission and approved by the City Council.
The Committee which includes the Planning Commission and City Council represents a
wide cross section of area residents. They met twice at the beginning stages of the
Comprehensive Plan update to discuss potential issues and opportunities in the
community. The representation of these people has provided the insight and initial
direction for the process. The community involvement will continue throughout the
comprehensive planning process with public meetings at the end of each stage.
This report provides a summary of the issues and directions which community officials
and residents have identified. As such, it will be utilized in conjunction with the technical
data compiled in the data collection process to formulate the policies as well as physical
layout of the community. Throughout the issues identification process, it was realized
that there is agreement on most of the issues but also differences in the philosophy and
details of the approaches to be taken. An additional purpose of this report is therefore to
highlight these matters so that they can be addressed as part of the planning process.
The presentation of information in this report is provided in two sections. The first
summarizes the comments and direction raised by the participants. This was
accomplished by the use of text and issues and opportunities maps. The second section
includes a diagram of the comprehensive planning process in which this document is
based.
GROUP ISSUES DISCUSSION
A wide cross-section of people representing many facets of the community were chosen
for their insight and perspective as part of the group meetings. The focus of the
discussions was on the existing, developing portions of the community and in the potential
areas for infill and redevelopment. A portion of the discussion was focused on potential
growth outside of the current City limits.
Those participating were asked to identify which community concerns were most
important as well as what direction the City should be taking, especially as it relates to
land use. To a significant degree, the group discussion and open house revealed that
there is an overall consensus among City officials and community representatives on both
issues as well as objectives. Simultaneously, there are, however, some uncertainties on
the part of some individuals and some differences of opinion on approach and philosophy.
This is not an unusual occurrence and in fact is seen as a positive in that it may help
insure a more detailed consideration and discussion of the plan and its components. In
this regard, it must be recognized that differences need to be resolved and that a
consensus be reached on the course for the plan which is to be implemented.
Before proceeding further with a discussion of issues and objectives, additional
background explanation and qualification is required. In the paragraphs which follow, the
comments which were made by community leaders and residents have been generalized
so as not to credit any one person with a particular statement or position. Whenever
differences of opinion were encountered on a specific subject, it has been expressed as
a majority or minority opinion. Note should also be made that the focus of the issues
identification process and hence the discussion in this section is positive although
negative comments were received. This negative theme and characterization of the
community should not be interpreted as the prevailing opinion of the City. To the contrary,
the community leadership, residents and staff view Oak Park Heights as offering a unique
and quality living environment. The objective in identifying Oak Park Heights' issues is to
ensure that these matters are properly addressed and resolved so that the benefits
offered are maintained and increased.
The identification of each and every issue raised as part of the issue identification process
is not attempted by this report. Such would be beyond the scope and purpose of this
effort. The issues which are raised are a broad categorization of topics receiving
attention. Identifying and dealing with this more basic framework of concerns will facilitate
the organization of responses which, in the long run, will comprehensively address all
concerns, including the sub-issues which have not been specifically cited.
Also to be noted is that the following discussion is not a priority listing of objectives or
issues. In this section, only a comprehensive statement of topics raised by community
leaders, residents and staff is attempted. Finally, it needs to be stated that the summary
avoids opinions and positions of the planner. Within the policy and planning sections,
planning recommendations and alternatives will be offered for consideration.
In order to provide a meaningful presentation of the issues identification discussions, the
topics which were raised have been organized into a listing of broad issues and
subsequently divided into sub-topics. The outline of the issues summary is follows:
• Community Attitude
• Regional Planning/Cooperation
• Environment
• Land Use
• Developable Land
• Planning Study Area/Annexation
• Residential Development
♦ Single Family
• Multiple Family
• Affordable/Life Cycle Housing
• Commercial Development
• Highway Commercial
■ Industrial/Business Warehouse Development
• Transportation
• St. Croix River Crossing/Highway 36
• System Improvements/Issues
• Community Facilities
■ City Facilities
• Utilities
• Police/Fire
• Parks and Trails
• Park Facilities and Land
• Preservation Programs
• Administration
■ Financial
• Staff
• Codes/Regulations
COMMUNITY ATTITUDE
The overriding attitude that was expressed by the residents of Oak Park Heights during
the issue gathering process was the positive attitude about the community and the long
term prospects for continued growth and improvement. Residents cited the quality of life
in the area, the existing and expanding potential for commercial and industrial
opportunities, established and comfortable neighborhoods, the amenities of the nearby
rivers, lakes, and wetlands, and the school systems in the community that contribute to
making Oak Park Heights an attractive place to live. Those persons involved in the
opportunities and issues discussions as part of the Comprehensive Plan process listed
the following as the positive aspects of the community:
1. Excellent access to the freeway system which provides connections to the entire
Minneapolis St. Paul area.
2. The community provides an adequate land use density with residential,
commercial, and industrial/business warehouse uses.
3. Positive small town/City atmosphere.
4. The community has a number of shopping, recreational and entertainment options
for its residents.
5. There is an excellent City park system with good proximity to four State parks.
6. The City is situated in such a way that it is close to the St. Croix River Valley, rural
areas and open space.
7. There is excellent housing options with a premier senior living complex in the City.
8. The school system is excellent and the high school is located within the City.
9. The City has a good government structure with a high level of long term
participation on City boards and commissions.
10. The taxes are relatively low in comparison to other area cities.
There were few negative comments made by residents and most dealt with issues related
to the St. Croix River Crossing and the Highway 36 transportation corridor. The
uncertainty related to timing of the project, potential utility costs that could be incurred by
the City as a result of the bridge/roadway, and the impact to the Oak Park Heights
business community were all issues related to that project. The major frustration was that
most of the decisions made related to the bridge and the construction schedule were not
under the control of the City.
REGIONAL PLANNING/COOPERATION
Oak Park Heights functions as one of the primary communities along with Stillwater and
Bayport in this urban planning area on the east edge of the Minneapolis St. Paul
Metropolitan Area. The City has a good level of cooperation with its neighbors Stillwater,
Bayport and Lake Elmo. In the past, cooperative studies have been conducted to
determine if additional governmental facilities and service provision should be shared by
communities. Currently, the Cities are cooperating in development of a St. Croix area
YMCA. Residents felt that discussions should continue among jurisdictions to explore
means in which to share facilities and services to improve quality at a lower cost to the
taxpayer.
Due to disagreements over annexation, the working relationship in the past between Oak
Park Heights and Baytown Township has not been favorable. Residents and City officials
felt that efforts should be made to improve the relationship and continue to work on issues
related to cooperation on uses that affect the two communities.
ENVIRONMENT
The City of Oak Park Heights is situated in an area of varying topography and
environmental factors influenced by its proximity to the St. Croix River. While the older
areas of the community developed on the bluffs adjacent to the river, recent development
is focused on the broad, flat plains moving westerly from the main channel. Areas within
these plains are highlighted by steep topography and wetlands. Staff and residents agree
that topography, stormwater facility design, and well head locations are all issues that will
impact future development and redevelopment. Residents indicated that the City should
also look at making better public access ties to the St. Croix River. Trail connections from
the City into the rural areas and into a regional trail system was also thought as a way to
link residents to the river and open space.
LAND USE
The map on the following page highlights many of the land use issues discussed in the
following text.
Developable Land
The 1998 Comprehensive Plan planned for a significant increase in land area for the City
of Oak Park Heights through annexation from adjacent jurisdictions. The land was to be
developed primarily with single and multiple family neighborhoods with other areas
designed for commercial and industrial uses. Residents and City officials are not
supportive of the large area of annexation proposed in the prior plan. The City Council
currently has a policy that annexation will not occur unless agreed to by the other
jurisdictions. The plan will discuss areas outside of the City limits that have been
discussed for future annexation by the property owners and the City, but those areas are
extremely limited.
Within the City limits, there is relatively no residential land and a limited amount of
commercial and industrial/business warehouse property to develop. The focus of this
plan will not emphasize new development, but rather begin to look at potential
redevelopment areas within the community.
Residents and City officials have supported the growth of the community and welcome
the new businesses, services and jobs that accompany this development. Residents
expressed some concern about the sameness or repetition of the type of commercial
development, especially the number of strip retail/commercial centers. Residents were
also concerned about the transitions between neighborhoods and commercial areas to
assure that through development, adverse impacts are mitigated through the design
review process. The City has been challenged to look at zoning transitions, the current
Design Guidelines, traffic, and providing screening through landscaping and fences, as
well as providing protection against light pollution, odor and noise.
Residential Development
Single Family. Residents of Oak Park Heights take pride in their neighborhoods and City
officials make the point that there is a great deal of diversity in housing styles, ages and
price ranges. A majority of the housing was built in the 1970s, 1980s, and 1990s, most
of which is of a medium range value and affordable to a larger number of homebuyers.
At the end of the 2006 building season, there were less than 10 fully sewered, subdivided
lots available for single family development. Additionally, there are no large parcels of
land available for future development of single family neighborhoods. Within the next ten
years, there may be some replats of parcels that will provide a handful of additional single
family lots.
City officials and residents have conceded that this plan will not include large tracts of
land currently in Baytown Township for residential development. Instead, the focus of
this Comprehensive Plan will be to improve existing neighborhoods and look at the
transition areas between commercial and residential to provide better living environments.
Continued maintenance, investment by the City on roads and utilities, and provision of
trails and parks is now seen as the priority.
Multiple Family/Townhouse. Oak Park Heights residents recognize the need for a
diversity of housing types of which multiple family plays an important part. There are
areas of the community that, as of Spring 2007, are being developed with townhome
units. The Oakgreen Village development at 58th Street and Oakgreen Avenue would
add a total of 113 townhome units. The Pine Grove Gardens east of Oakgreen Avenue
is currently under construction with a total of 26 townhome units. Upon completion of
these developments, the readily available land for multiple family and townhome
development will be depleted. The Comprehensive Plan will identify other areas that
could accommodate infill development of multiple family and townhome development.
In 2007, an expansion of the Boutwells Landing senior development is expected that
would add a 106 unit skilled nursing facility. This is in addition to the existing development
that consists of 56 village homes (side-by-side townhomes), 94 assisted living
apartments, 101 independent living apartments, 137 village homes (single family and
attached units), and 78 brownstone units. Boutwells has also proposed the final phase
of the complex which would consist of a 28 unit memory care facility. Boutwells Landing
has examined the possibility for expansion into property south of the main campus which
is in Baytown Township. City officials have indicated that if access and City services are
required for expansion of the campus, the City would require annexation.
Affordable/Life Cycle Housing. For years, the community has prided itself on providing
affordable housing for people of all age groups and socio-economic levels. City officials
are interested in preserving the levels of affordable housing while expanding the numbers
of housing units in the higher price values and as part of infill development. By providing
housing of all types and price ranges, the City can remain an attractive place for people
as they proceed through their life cycle.
The City will continue to work with the Metropolitan Council on providing life cycle and
affordable housing. Due to the limited amount of developable land, it is unlikely that
significant numbers of additional affordable units will be developed in the community. City
officials indicated a preference for more mid to higher level homes and living units as part
of the continuing infill and redevelopment that is expected, in that there exists a significant
number of affordable units.
Commercial Development
Highway Commercial. City officials and residents recognize that the development of the
Highways 36 and 5 corridor commercial areas are nearing completion. The land available
for new development is now concentrated on the west side of the City with potential for
infill around the newer commercial developments. In the past ten years, the City has
defined more specific commercial zoning districts to direct the types of development to
the appropriate areas. The City has also adopted design guidelines to assure quality
development in the highly visible Highway 36 corridor. City officials and residents
recognize a shift from development on bare ground to redevelopment of numerous areas
along the highway corridors.
The Comprehensive Plan will identify areas along the Highway 36 corridor for potential
redevelopment. City officials indicated that much of the new development was very
consistent in architecture and building materials. Too much of the development all looked
the same. The Design Guidelines may need to be reviewed and updated to direct the
change to redevelopment activity.
Industrial / Business Warehouse Development
Other than the Allen S. King Plant and a small surrounding area, the City of Oak Park
Heights does not have a large industrial land use base. Annexation of the Kern Center,
a partially developed office and business park west of Highway 5 enabled the City to add
to its business and warehousing base. Portions of the Kern Center remain available for
development including a large area with frontage on Highway 5. City officials and
residents recognize the limitations the City has in regard to land area and further building
its industrial and business base. Land owners to the west of Kern Center, within the City
of Lake Elmo, have inquired with both Cities regarding the possibility of detachment from
Lake Elmo and attachment to Oak Park Heights. They request this in order to be provided
utility service for commercial development. The City of Oak Park Heights has taken the
position that it will not pursue an annexation/ detachment unless the City of Lake Elmo
would agree to such an action. At this time, the City of Lake Elmo is not interested in a
detachment of land and annexation to Oak Park Heights. City officials indicated that the
plan should acknowledge this is a potential area for annexation to the City if the City of
Lake Elmo and Oak Park Heights can come to an agreement.
TRANSPORTATION
The map on the following page highlights many of the transportation issues discussed in
the following text.
St. Croix River Crossing / Highway 36
The most significant community issue discussed by City officials and residents is the St.
Croix River Crossing at Highway 36. Ten years ago, the previous Comprehensive Plan
indicated that the bridge location had been selected and improvement plans for Highway
36 were being developed. There was optimism that the bridge and Highway 36
improvements would be well underway by the year 2000. As of the date of this plan, there
are revised plans for the bridge and Highway 36 improvements but no schedule for
construction. The City of Oak Park Heights has not given municipal consent for the
project.
City officials are resolved to work with Mn/DOT on plans and timing for the bridge and
Highway 36. City officials and residents expressed their frustration over this project and
how it has affected the City in terms of plans for development/redevelopment along the
corridor and the ability to effectively plan for transportation improvements.
System Improvements / Issues
The City of Oak Park Heights is well served with transportation routes providing access
to the region including Highway 36, Highway 5, and Highway 95. Discussions with City
staff/consultants stress the need to closely work with representatives of Washington
County and Mn/DOT on issues related to new roadway construction, reconstruction,
roadway turn backs and maintenance responsibility issues. Of particular importance to
the City is the increasing levels of traffic on Highway 36 and the related impacts of
highways on Oak Park Heights such as noise, air quality, and intersection congestion.
City officials and residents emphasized the need for rebuilding Oakgreen Avenue to an
urban section to better accommodate vehicular and pedestrian traffic within the corridor.
Although a portion of the improvements would be made by Mn/DOT as part of the
Highway 36 improvements, City officials thought it may be necessary to upgrade the road
soon, recognizing the continuing residential development in the area.
Extension of 58th Street to Manning Avenue was also raised as a planning issue. This
would likely be done only if the area to the west of the City limits was annexed to Oak
Park Heights and commercial development was to occur.
Mass Transit
Residents and City officials commented about the lack of mass transit options for people
in Oak Park Heights and the St. Croix Valley area. Currently, direct bus service only
travels into St. Paul from the park and ride facilities in the region. With the increased
awareness and growing need for mass transit options, City officials indicated it would be
necessary to work with Metropolitan Council and State representatives on transit options.
There are ongoing feasibility studies for mass transit and rail options for Highway 36 and
Interstate 94. City officials have indicated the importance of being involved in the studies
and their final outcome.
COMMUNITY FACILITIES
The map on the following page highlights many of the community facilities issues
discussed in the following text.
City Facilities
The City Council has recognized limitations with the current City Hall, Public Works and
Police facility at 14168 57th Street North. In 2006, the City retained a consultant to
conduct a needs assessment for the City Hall complex. The results of that need
assessment and the City Council direction on possible improvements will be made a part
of the Comprehensive Plan.
City officials and residents discussed the City's participation in the development of a
regional YMCA facility. This would be a joint effort between the Cities of Oak Park
Heights, Stillwater, Bayport and Lake Elmo. City officials will continue to participate in the
planning for and possible construction of this facility to be located in the City of Lake Elmo.
An ongoing need for the City is additional public works building space and outdoor storage
areas. The City Hall needs assessment study will address the public works facility needs.
The City has considered in the past the addition of a fire substation and emergency
vehicle placement, and the City officials again raised the issue as a result of the
Comprehensive Plan update. City officials had mixed feelings regarding the need and
timing of such a facility and considered it a long term issue.
Utilities
The City Engineer is preparing water, sanitary sewer and storm sewer plan updates as
part of the Comprehensive Plan process. These plans are expected to show few issues
with the City's utility systems. One issue that has not been resolved since the previous
plan is the addition of a third City well. The City Engineer has indicated that the well is
required to provide additional pumping capacity for the City as well as providing a back
up to the existing system. The City has sized its utility systems to adequately service all
areas of the City and those areas that could potentially be annexed at a later date. City
officials have indicated that continuing maintenance and upgrades, as necessary, is the
ongoing issue for the utility systems.
As indicated previously, one of the primary issues related to the St. Croix River Crossing
and Highway 36 improvements is the relocation of the City's utility lines. Presently,
Mn/DOT has not offered the City adequate funds as part of the project to reasonably
move the affected utilities. This issue will need to be resolved before the City will grant
municipal consent to the project.
PARKS AND TRAILS
The map on the following page highlights many of the transportation issues discussed in
the following text. As part of the Comprehensive Plan process, the City will also create a
new Comprehensive Park and Trail System Plan to update the 1999 document. The plan
will examine park improvements to be made and trail/sidewalk connections that should
be completed. Residents and City officials are proud of the extensive park and trail
system and look forward to the completion of the system.
Potential projects identified as part of the issues and opportunities discussions included
the following:
1. Completion of the park shelter at Autumn Hills Park.
2. Possible extension of Brekke Park into adjacent undeveloped area.
3. Park/trail development on the Xcel Ash Facility.
4. Development of a dog park.
5. Possible construction of a community swimming pool.
6. Identify and close gaps in the trail system.
7. Provide a trail connection to Manning Avenue and to regional trail connections.
8. Provide trail connections into the DNR property along Osgood Avenue.
9. Develop trails along each side of Oakgreen Avenue.
10. Plan for sidewalk and trail construction and connections as part of the Highway 36
improvements and the St. Croix River Crossing.
11. Plan for interconnections with regional trail systems and with adjoining
communities.
12. Develop recreational programs within the City park system. Also provide programs
for older children.
ADMINISTRATION
Financial
City officials were positive of the financial condition of the City of Oak Park Heights and
do not foresee any major issues ahead. Continued upgrades and maintenance of existing
community facilities, utility systems, and the street network will be an ongoing capital
improvement exercise. The City will need to set aside funds for a third well, and possibly
for a public works expansion or fire hall within the City if the City Council determines they
are necessary public facilities.
Staff
After retirements and staff replacements in 2007, the employee roster for the City of Oak
Park Heights and the level of administrative staffing will be adequate. The City has
emphasized utilizing consultants for legal, engineering, planning, forestry, and financial
assistance. City officials have indicated that this type of staffing is cost efficient and
appropriate for a City the size of Oak Park Heights. Officials indicated that staffing will
likely stay at the current levels in the foreseeable future.
Regulations / Design Guidelines
As a follow up to the Comprehensive Plan, the City will likely need to review its Zoning
Ordinance and Design Guidelines. With the emphasis in the coming decade on infill and
redevelopment, the City should look at its regulations and make adjustments as
necessary. Residents commented on the "sameness" of building architecture and
materials with recent developments. The City should review those guidelines to
determine how they can better direct development appearance in the City.
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