HomeMy WebLinkAbout1995-06-07 NAC Planning Report �- • •
I� t Northwest Associated Consultants, Inc.
C U R B A N 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
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
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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
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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
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Approximate SCREATON i *. •
Mobile Home PROPERTY
Location °
II
: 48.9 ac. tr 406 3200
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Subdivision Baytown Township
. Line 4114,11,, ."
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EXHIBIT A - SITE LOCATION
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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
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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:
OAK PARK 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
411 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
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. .
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.
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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.
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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.
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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
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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.
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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.
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