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HomeMy WebLinkAbout1995-11-30 NAC Memorandum to OPH Re Request for Annexation Northwest Associated Consultants Inc. C C O M M U N I T Y P L A N N I N G • D E S I G N • M A R K E T R E S E A R C H MEMORAND UM t93 TO: Mike Robertson FROM: Scott Richards DATE: 30 November 1995 RE: Oak Park Heights - Request for Annexation - Screaton Property FILE NO: 798.02 - 95.05 As you are aware, David Screaton has again requested the City to annex the 48.9 acre parcel on the west side of State Highway 5 within Baytown Township. He indicates in his letter dated 20 November 1995, that with the recent completion of the Baytown Township Plan, their preference is to be annexed to the City. The Baytown Plan does not address any potential annexation areas to the City and other than designating this area as Rural Residential (5 acre Tots) is silent on the Screaton property. In our opinion, the adoption of the Baytown Plan has no effect on the conclusions drawn in the 7 June 1995 memo on this issue (see attached). As we suggested in June, the City should not engage in piece meal annexation of properties to the west of Highway 5. In the alternative, the City and Township should pursue the option of an orderly annexation agreement for the Screaton and other properties that may require utility service at some date in the future. The Screatons should take the lead in organizing other property owners that may be favorable to annexation now or at some date in the future and setting up a meeting between the Township and City officials to discuss orderly annexation. pc: Mayor and City Council Mark Vierling 5775 Wayzata Blvd. • Suite 555 • St. Louis Park, MN 55416 • (612) 595- 9636•Fax. 595 -9837 44 N orthwest Associated C IFFT Consultants, Inc. URBAN B A N P L A N N I N G • DESIGN S I G N • M A R K E T R E S E A R C H PLANNING REPORT TO: Mike Robertson FROM: Scott Richards DATE: 7 June 1995 RE: Oak Park Heights - Request for Annexation - Screaton Property FILE NO: 798.02 - 95.05 BACKGROUND Ross and Judith Screaton have made a request for annexation of a 48.9 acre parcel on the west side of State Highway 5 within Baytown Township. The parcel is adjacent to the City boundary along the southwesterly edge of the Stillwater Area High School property. Surrounding the parcel to the north is 55th Street and developing commercial/industrial property in Baytown Township, to the south is St. John's Lutheran Church and undeveloped property, to the west is the easterly boundary of the City of Lake Elmo. Previous annexation studies from planning and engineering staff have not focused specifically on annexation of property west of Highway 5. The August 1991 Comprehensive Plan amendment for the High School site annexation area indicates that the demand for developable property in Oak Park Heights would exceed the supply of vacant land before the end of the 1990's decade. Considering the current development interest in Oak Park Heights, it is likely that much of the area annexed in 1991 could be developed by the year 2000. The Comprehensive Plan amendment also indicates that area to the west of Highway 5 could be a potential growth area for development of commercial and possibly residential property for Oak Park Heights. The 1989 engineering report for the annexation area did not address the issues of extending municipal services to areas west of Highway 5. It is expected that the City Engineer will review that issue in reaction to the current request. A review of the property records at Washington County for the Screaton property indicates the property was subdivided into two parcels in 1989. The westerly parcel is listed in the name of David R. Screaton, Partnership. This parcel has been developed with a mobile home accessing 55th Street North. The easterly parcel is listed as Oakgreen Farms Inc. It is assumed for this report that both property interests are involved in a petition for annexation. 5775 Wayzata Blvd. • Suite 555 • St. Louis Park, MN 55416 • (612) 595- 9636•Fax. 595 -9837 Attached for reference: Exhibit A - Site Location Exhibit B - Site Orientation to High School Exhibit C - Assessor's Files Exhibit D - Population and Land Demand Sections of 1991 Comprehensive Plan Amendment ANNEXATION ANALYSIS The property, totaling 51.95 acres (with adjacent Highway 5 right -of -way totaling 3.05 acres) qualifies the parcel for annexation by ordinance. Official petitions would need to be received by the Screatons and the Minnesota Department of Transportation requesting annexation to Oak Park Heights. The Oak Park Heights City Council would then consider an ordinance for annexation. A public hearing must be held by the City Council and 30 days written notice would be given to the Township. Upon ordinance adoption, the Minnesota Municipal Board would then approve the annexation. If 100 % of the property owners petition, and the area is less than 60 acres, the property would be annexed to the City without review or approval by Baytown Township. Section 414.033 of Minnesota Statutes, Annexation By Ordinance reads as follows: Subd. 2 A municipal council may by ordinance declare land annexed to the municipality and any such land is deemed to be urban or suburban in character or about to become so if: 1. The land is owed by the municipality; 2. The land is completely surrounded by land within the municipal limits; or 3. The land abuts the municipality and the area to be annexed is 60 acres or less, and the municipality receives a petition for annexation from all the property owners of the land. RECOMMENDATION Our office strongly recommends against annexation of small parcels to the west of Highway 5 on a random basis. This recommendation is based on the following: 1. Annexation of the Screaton property by ordinance may create long term problems in the City's relationship with Baytown Township and raise concerns that the City is annexing property just for the sake of increasing territory and tax base. If the City is interested in additional territory and if a majority of the property owners in the area between Oak Park 2 • • Heights and Lake Elmo, south of Highway 36, request annexation, then the City should pursue an orderly annexation agreement with Baytown Township. Orderly annexation is a process established in Minnesota Statutes that allows a township and municipality to negotiate the terms for annexation of a parcel(s) of land. Although we have not recently discussed annexation with Baytown Board members regarding this general area, it is unlikely the Township would forfeit prime commercial and industrial tax base to the City unless there are environmental concerns with private septic or well systems. To our knowledge, no environmental concerns exist at this time. 2. From a land use and service perspective, annexation of the approximately 50 acres is premature in that it is not a logical or cost effective parcel of land to serve. The City Engineer has indicated that the cost of water and sanitary sewer serving only this parcel is prohibitively expensive. Provision of other municipal services such as police, construction and maintenance of roadways, provision of access to park facilities, etc., are all compounded by the separation and isolation of this parcel from the rest of the community. Municipal planning and service provisions would be practical for a larger area, possibly from the southerly City boundary north to Highway 36. 3. Plans for improvements to Highway 5 indicate that the widening and inclusion of a center median will extend south of 55th Street North. The right -of -way needed for the widening of the roadway will take additional property from the frontage of the Screaton parcel. The effect of this widening and how access is to be provided through the property or how the parcel relates to transportation planning for the general area has not been addressed by the property owners. Provision of roadways and general access issues would need to be addressed for the entire area, which would be difficult if not under the control of one jurisdiction. CONCLUSION The addition of property to the west of Highway 5 is a major policy decision for the City Council. The decision should take into consideration the boundary issues of the entire area west of the City limits along Highway 5, not just on an individual property basis. Direction for annexation should also be incorporated into a Comprehensive Plan update for the entire community. Thus, when the City reacts to an annexation request, the plan can be used to provide guidance, whether for or against, the expansion of municipal boundaries. It is suggested that if the Screatons would like to pursue their annexation attempt and if the City Council concurs, then they should pursue the option of an orderly annexation agreement with the Township and the property owners in the area south of Highway 36. pc: Mayor and City Council Mark Vierling Joe Anderlik Ross and Judith Screaton 3 • • 60TN STREET NORTH 03026 MAY 36 fir 7060 — 2175 - el 2503 �..q NORTHERN STATES POWER COi.PANY EASES.ENT — 2055 ' b _-.:.'.: I 0 �: : 75,0 � ytown Township ,� �:: y�r 2515 - - 7 - - - Lake Elmo a / 7.50 zo50 r "r • - . (.,...,.._ „.. Oak Park Heights rte: ,. a 2530 $520 .g? b , 5 / 3300 t a 3000 \ a i 55111 1 STREET NORTH Ix / 1 ` . - °~ 2300 Stillwater Area High School i I 3300 Approximate SCREATON S 1 ■ ' ' ' Mobile Home PROPERTY :F. Location 48.9 ac. 3200 7370 Apprroximate Baywn Township Subdivision 1! V 1i t0 ./' 2350 y s I 2.00 73m � = - -. h 50' .' 1 C Oi`i LO7 A OUTIOT 0 - . - • i f i EXHIBIT A - SITE LOCATION �Ii jr , ,,„., ,,,,,,,,,,, 1, , s. . �/:. /r 11 , i . ��� r j�Jr #r„.,,,,\; � L iI r' 0; , I + r J �� I ; 1:.3 2 ' 0 C ✓ v i. 1 I I II I U U t r (c(i '' ,t • . ;' r r , ( L�7 � �i�.� / , l ' � � y � J - t •••• , -- -----,..„ • ••• ■,. i r - -s r . y ri r i ° v .„..... ' ; � � �� / _ � - - 111 , �� > >)� ' % �� �� _ j�` � I III XS Il , :_ _I _, . c,- ' i I _ ma 1- �, / • • I��'fi'r /, k Y:" i ° t ' 1i' R a �'�. �- 1! '.(k`'; „ :12: ' I , ��C<< f l 1 1 • i` - f ; ' �� o o �1 ), c j `` ` I- - , ` '1K �' E3�c i --- � ,.R- er g, \ I�I 1. FIe. �. - ; 022.3 11 I i \\ 6 � r. ^ f I , t ' I I s \ S a akOMIfflMIMH Q 3 . 1 \{ iY ei �� BfNhtIMiNN�B 1 i r lii (� I � i I n - . r -- 1 � r {E z..,1; ® o 4 I * : � � � © t .. em 1 g • I .! Y •- 1 \ I �itot I i. 0 — - i N 4 ! M I j , . ,.,:. ,, , l �� „ J _ I. , , .4 ,\•:,.. , ,.._,:t.. --\,-,,,,,,,_-_,„„ , , ,,, i•-e ilei II 1:c ,, _ .. ,. 1,' - ': b 1, ,____„-.__*---v'' \ 1 v , -- 4, ; v I a II 8 '. t / t t � « r I '_ �q :.� z r ' 1 • ry' +_ . L I` 1 >- • ' IY \ ` \ \ F t 4. i 1 w aR >. y 11 ' II 1 _,. ::, $ ` --1 CA . — r Iii - , \\ ( _ _ Z N I r e ' 11 I' S F. in O .rl L ; I 1 0 Q CC I ■ 1 EXHIBIT B - SITE ORIENTATION TO HIGH SCHOOL ASSESSOR'S FILES: SCREATON PROPERTY PARCEL # 78006 -2365 MP.# 78006 -2365 GEO CODE 06- 029 -20 -32 -0002 TAXP.# 2660160 NO DELQ RECORDS NAME OAKGREEN FARMS INC C.P.# AD.1 2474 OAKGREEN AVE N OWN.# 2660160 OAKGREEN FARMS INC AD.2 STILLWATER MN FALCO 1 F.O. AD.3 ESCR.# ZIP 550820000 * -TAX DISTRICTS -* DESC. 1 PT NW1 /4 -SW1 /4 S6T29R20 TWP /CITY 80 2 BEING THE W 440FT OF SD1 /4 -1/4 SCHOOL 834 3 BAYTOWN TWP FIRE 4 CHG CODE 6 10 -13 -89 TRAN 5 WATR 11 6 AGRI 7 8 TAX INCR. # 9 TAX INCR. AMT. 10 PARCEL # 78006 -2355 MP.# 78006 -2365 GEO CODE 06- 029 -20 -32 - 0001 TAXP.# 2656041 NO DELQ RECORDS NAME SCREATON DAVID R PARTNERSHIP C.P.# AD.1 2474 OAKGREEN AVE N OWN.# 2656041 SCREATON DAVID R PARTNERSHIP AD.2 STILLWATER MN FALCO 1 F.O. AD.3 ESCR.# ZIP 550820000 * -TAX DISTRICTS -* DESC. 1 PART OF N1 /2 -SW1 /4 OF S6T29R20 TWP /CITY 80 2 LYING W OF C/L OF STILLWATER & SCHOOL 834 3 ST PAUL RD SO- CALLED AS NOW LAID FIRE 4 OUT & TRAVELLED THROUGH SD 1/4 SEC TRAN 5 EXC THEREFROM ALL THAT PART OF NE1 /4 WATR 11 6 -SW1 /4 OF S6T29R20 LYING SLY OF LINE AGRI 7 880FT S OF & PAR TO EXISTING TRAVEL 8 LED C/L OF 55TH ST & LYING WLY OF WL TAX INCR. # 9 Y R/W LINE OF SD STILLWATER & TAX INCR. AMT. 10 ST PAUL RD SO- CALLED EXHIBIT C - ASSESSORS FILES • • PROJECTED GROWTH This section as follows analyzes growth rates from a population perspective for Oak Park Heights and the surrounding areas to demonstrate the growth and continuing demand for land in this area. POPULATION To determine the City of Oak Park Heights growth rates from a population perspective, a study of the historic growth of the City was conducted. Additionally, the historic growth projections were conducted for the developing areas around Oak Park Heights, including Baytown Township, Stillwater Township, Stillwater, and Bayport. The surrounding areas growth is being reviewed and projections calculated to demonstrate the high growth and the continuing demand for developable land in this area. The projections of population and households were developed on the basis of an analysis of . local and regional trends in residential development. Specific data applied to the projections were the rate of residential building permits issued since 1980 and trends in average household size. In Oak Park Heights, a projected average yearly growth of 34 housing units per year translates to a population growth to 3,994 people in the year 2000 and 4,602 in 2010. The population, households and housing unit projections are as follows: OAR PARR HEIGHTS POPULATION AND HOUSEHOLD TRENDS AND PROJECTIONS Median Household Housing Population Size Households Units 1970 1,256 3.38' 372 377 1980 2,591 2.71 955 1,026 1990 3,486 2.63 1,322 1,348 2000 ** 3,994 2.44 1,637 1,688 2010 ** 4,602 2.34 1,967 2,028 Average Yearly Growth - 34 Units ** Northwest Associated Consultants, Inc. Projections EXHIBIT D - POPULATION & LAND DEMAND SECTION OF 12 1991 COMPREHENSIVE PLAN AMENDMENT III • Growth rates for the area around Oak Park Heights indicate a strong level of residential growth that is expected to continue through the year 2010. The calculations for population, households, and housing unit projections are as follows: BAYPORT, STILLWATER, BAYTOWN TOWNSHIP, STILLWATER TOWNSHIP POPULATION AND HOUSEHOLD TRENDS AND PROJECTIONS Bayport: Median Household Housing Population Size Households Units 1970 2,987 4.56 655 669 1980 2,932 4.33 677 704 1990 3,200 4.30 743 766 2000 ** 3,064 4.00 766 790 2010 ** 3,077 3.90 789 814 Average Yearly Growth - 2.4 Units Stillwater: Median Household Housing Population Size Households Units 1970 10,208 3.36 3,035 3,115 1980 12,290 3.02 4,065 4,279 1990 13,882 2.78 4,982 5,189 2000 ** 14,554 2.54 5,730 5,969 2010 ** 15,808 2.44 6,479 6,749 Average Yearly Growth - 78 Units Baytown Township: Median Household Housing Population Size Households Units 1970 723 3.93 184 188 1980 851 3.59 237 242 1990 939 3.10 302 308 2000 ** 959 2.70 355 363 2010 ** 1,022 2.50 409 418 Average Yearly Growth - 5.5 Units ** Northwest Associated Consultants, Inc. Projections 13 Stillwater Township: Median Household Housing Population Size Households Units 1970 979 4.00 245 256 1980 1,599 3.57 448 463 1990 2,066 3.23 639 659 2000 ** 2,151 2.70 794 819 2010 ** 2,372 2.50 949 979 Average Yearly Growth - 16 Units ** Northwest Associated Consultants, Inc. The average yearly growth of Oak Park Heights and the surrounding area is approximately 136 residential units per year. With the addition of the significant new area for residential development, it is expected that Oak Park Heights will capture a larger portion of the development in this area, especially from the areas in the Townships not served with municipal services. 14 • 4 LAND ABSORPTION The following analysis provides an inventory of vacant developable land with the recently annexed area. This land supply is then compared with historical growth trends and assumption of future growth to outline anticipated land absorption for Oak Park Heights. LAND SUPPLY Using information from the 1988 annexation, the following table was prepared to illustrate the total amount of net developable land existing in the City, both before and after the school site annexation. Description of the information included in the table is as follows. Column number 1 represents total geographic area of the City of Oak Park Heights and the annexation area by acres. Developable vacant land is defined as land suitable for development not containing wetlands, poor soils, slopes over 18 percent and not affected by development restricting utility easements. With the proposed annexation, the City's total supply of developable vacant land will increase to 562 acres. In 1988, the City of Oak Park Heights had approximately 56 acres of land committed to development. Since 1988, this development commitment has grown to approximately 91.7 acres. The Stillwater Area High School site in the annexation area comprises 145 acres of the total annexed acreage. These committed acres are subtracted from the vacant land supply. This results in an uncommitted vacant land supply of 322 acres after annexation. The net vacant land supply represents the vacant land that is available for building construction after credit is made for streets, storm water facilities, and park land contributions. This final calculation was made to provide direct and consistent comparison with the land demand projections which are based on building permit activity in the City. With the annexation area, the City of Oak Park Heights will have a net vacant land supply of 225.5 acres. 15 • • 1991 VACANT LAND SUPPLY Land Total Vacant Committed Uncommitted Net Gross Developable for Vacant Vacant Acres Land Development Land Land City 1,287 217.3 91.7 125.6 87.9 Annexation Area 392 345.0 148.5 196.5 137.6 TOTAL 1,679 562.3 240.2 322.1 225.5 LAND DEMAND Residential: Oak Park Heights has a City -wide residential density of approximately 3.6 units per acre. Based on growth between 1980- 1990 and applying the average residential density to the project housing unit projected growth (340 units) provides a residential land absorption of 95 acres for each of the next two decades. This projection is based on the assumption that the 1980s, with its slow growth early and strong growth in the second half of the decade, provides an adequate base to project growth in the coming decades. Due to the limited land supply which existed in Oak Park Heights prior to 1988 and the amount of high density development in the Community, it is anticipated that future residential growth will be greater with the availability of an unencumbered land supply. Additionally, the land use plan proposes a significant amount of low density residential development in the annexation area. The low density residential land use classification will serve to increase future land absorption of the newly annexed area of the City. 16 i i Commercial: Between 1980 and 1990, the City of Oak Park Heights had approximately 15 acres of new commercial development. Additionally, 26 acres of commercial land development has been proposed in 1991. It is anticipated that the new commercial area adjacent to Highway 36 and County Road 5 will be developed within the decade in that the visibility, access, and expected water and sewer availability reaches this area desirable for development. Expected reconstruction of Highway 36 to a freeway will also create the need for commercial property in that businesses will be relocated to provide additional right -of -way. Although not all of the businesses will relocate in Oak Park Heights, it is anticipated that many would desire to stay in Oak Park Heights and take advantage of the highly visible commercial property along Highway 36 and County Road 5. In recognition of the strong growth assumption, a projected demand for commercial property in the coming decade is expected to be four times the growth of the 1980s decade. Industrial: In the past ten years, Oak Park Heights has experienced very limited industrial growth of only one acre. The annexation area will not introduce additional industrial land to the City. As such, no physical changes are being made that may change the rate of industrial land absorption. SUMMARY OF DEMAND The following table provides a summary of project land absorption based on historic community development trends. The Metropolitan Council's Development Framework provides that an urban service area should provide for a five year overage. The second column illustrates the projected demand with overage. PROJECTED LAND DEMAND WITH OVERAGE (ACRES) Projected Demand With Demand Overage Residential 95 142.5 Commercial 60 90.0 Industrial 1 1.5 Other 4 6.0 TOTAL 160 240.0 17 COMPARISON OF DEMAND AND SUPPLY Based on historical development trends for Oak Park Heights, it appears that the net vacant land supply of 225 acres would accommodate less than the projected land demand with overage for the coming decade. The land demand with overage consumes the entire vacant land supply by 15 acres. The demand for developable property in Oak Park Heights is expected to reflect strong growth in single family residential and commercial property. The demand with overage of 240 acres is expected to exceed the supply of vacant land currently within the City before the end of the 1990s decade. Additional areas adjacent to Oak Park Heights, in particular west of Highway 5, are expected to eventually petition for annexation and will add additional commercial and possibly residential property to Oak Park Heights. The land demand projections based on historical development are conservative. These projections represent a community with a limited supply of available vacant land prior to the 1988 annexation. These limited land supplies have served to suppress development in Oak Park Heights. With the availability of developable vacant land, land absorption ratios through the next decade are anticipated to be greater than the last ten years. A summary of the reasons for this forecast is as follows: 1. Increased land supply in itself will generate more development opportunities. 2. The extension of utilities to the school site will provide utility service to much of the newly annexed land. The availability of utility services and the financial implications will stimulate development interests in this area of the City. 3. The land use plan for the newly annexed area of the City calls for a large portion of the area to be developed as low density single family homes. This lower density residential use will generate a greater land demand than currently reflected in the City -wide average density. 4. Planned regional improvements to Highway 36 will improve the accessibility between Oak Park Heights and the balance of the Twin Cities Metropolitan Area. This convenient accessibility may enhance Oak Park Heights as a residential area. 18 . . 5. Commercial growth in Stillwater has extended west along Highway 36 taking advantage of highway visibility and accessibility. With the extension of utilities, Oak Park Heights commercial locations in the newly annexed area offers the same market location features. 19