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02-12-07 Joint PC-CC Agenda AGENDA Golden Valley Planning Commission Joint Meeting with the City Council Presentation/Discussion of the 1-394 Corridor Study Draft Final Report Golden Valley City Hall, 7800 Golden Valley Road Council Conference Room Monday, February 12, 2007 6pm (Dinner will not be provided) I. Presentation/Discussion of the 1-394 Corridor Study Draft Final Report Golden Valley Planning Commission Regular Meeting Council Conference Room 7pm I. Approval of minutes January 22, 2007 Planning Commission Meeting II. Reports on meetings of the Housing and Redevelopment Authority, City Council, Board of Zoning Appeals and other meetings III. Other business . Discuss draft Infill Housing report . Discuss rescheduling/cancelling the February 26, 2007 regular Planning Commission meeting IV. Adjournment This doc formats upon a lease call 763-593-8006 (TIV: 763-593-3968) to make a request. Examples of alternate formats may include large print, electronic, Braille, audiocassette, etc. . . . Memorandum Planning 763-593-8095 J 763-593-8109 (fax) ~lley Executive Summary For Action Golden Valley Joint City Council/Planning Commission Meeting February 12, 2007 Agenda Item Review of Final Draft of 1-394 Corridor Study Prepared By Mark Grimes, Director of Planning and Development Summary The final draft of the 1-394 Corridor Study has been completed and is ready for review by the Planning Commission and City Council. Suzanne Rhees and Dave Showalter from URS, Inc., the City's planning consultant on this study, will be at the February 12, 2007 joint meeting of the Planning Commission and City Council to go over the final draft and answer any questions. This draft has been reviewed by the members of the 1-394 Corridor Study advisory committee. They have submitted comments and those have been made a part of the final . draft. The members of the advisory committee include City Council members Pentel and . Shaffer and Planning Commission Members Keyser and Waldhauser. City Manager Tom Burt, HRA Assistant Director Jeanne Andre, Public Works Director Jeannine Clancy, the consultants and I are also member of the advisory committee. The final draft is in a format that was designed by the City's Communications staff after consultation with other members of City staff. This format will be used for the entire updated Comprehensive Plan document that is now underway. The goal was to create a style for the Comprehensive Plan that is accessible to citizens. If there are no significant changes needed to the final draft of the 1-394 Corridor Study, the staff would like to have direction to start the process to adopt this Study as a part of the land Use Chapter of the Comprehensive Plan. By adopting this Study as part of the Comprehensive Plan, this would allow the City to consider changing the Zoning Code to adopt a specific mixed-use zoning district for the 1-394 Corridor. This new zoning district would be the most significant tool that the City Council could use to bring about the vision for the corridor found in the Study. (The consultant, staff and advisory committee have looked at zoning code changes but are not prepared at this time to present them for consideration.) The staff has designed a preliminary timetable for consideration of the 1-394 Corridor Study that would encourage public input. . . . The timetable is as follows: . February 20, 2007-Draft of the 1-394 Corridor Study put on the City website with explanation of process for adoption and ways to comment. . February 23, 2007-Letter sent to all property owners in the 1-394 Corridor Study area informing them that the Study in on the City's website and asking for comments. The City will allow comments to be made until March 30, 2007. The letter will invite the property owners to schedule meetings with staff to give further explanation of the study and to receive comments. . March/April 2007- The CityNews will do a story on the 1-394 Corridor Study and the process to amend the Comprehensive Plan to include the Study as part of the Plan. . March 26, 2007-A news release about the proposed 1-394 Corridor Study and Comprehensive Plan amendment announcing an informal public. hearing before the Planning Commission. . April 9, 2007-lnformal public hearing before Planning Commission on Comprehensive Plan amendment adopting 1-394 Corridor Study as part of the Comprehensive Plan. . May1, 2007 ":"-Public hearing before City Council on Comprehensive Plan amendment adopting 1-394 Corridor Study as part of the Comprehensive Plan. . April/May 2007-Review of Comprehensive Plan amendment by Metropolitan Council, surrounding communities and other governmental agencies as required by the Land Planning Act. . Spring/Summer 2007-Begin process to amend zoning code and sign code to implement the 1-394 Corridor Study. Attachments Final Draft of 1-394 Corridor Study ;) T'#Ple of Contents . Contents 1. Introduction Need for Project ..... ...... ...... ........ .... ...... .......................... ...... .......... ............ ........ .........1-1 How this Study Will be Used .......... .............. ........ .......... ................ ........ ........ ............ 1-2 Study Process and Public Involvement ........... ................................ ........ ........ ...........1-3 2. Background The Corridor's Evolution .............. .......... .......................... ...... .......... ........ ........ .......... 2-1 Urban Design and Visual Analysis.. ................ ...... .......... .................... .......... .............2-2 Current Land Uses ......... ...... .......... ........ ...... ........................ ...... .... ............ ........ ...... ...2-4 Natural Resources ...................................................................................................... 2-4 Building and Land Values .................................. .........................,.............................. 2-6 Recent Development Proposals .......... .................... ........................ .... .........:.............2-6 Transportation and Circulation Issues. .............................................. .... ...................2-7 Current Zoning and Other Regulations ..................................................................... 2-7 3- Guiding Principles. ......................... ..... ... ............... ......... ... ... ....... ..... 3-1 4- Alternative Scenarios ................. ... ............ ...... ...... ......... ...... ...... ...... 4-1 . 5. Framework Plan ... .............. .............................................. .............. ................... 5-1 Land Uses - Primary and Secondary .........................................................................5-1 Illustrative Development Plan, Louisiana Avenue Area............................................ 5-2 Building Height Limits ................. ...................... .............. ...... ...... .......... ...... ........ ...... 5-2 Traffic Impact An'alysis............................................................................................... 5-2 Streetscape Treatments.............................................................................................. 5-7 Design Standards........................................................................................................ 5-7 6. Implementation ....... ..................... ........................... ... ... ......... ... ...... 6-1 Zoning: I -394 Mixed Use District ......... .......... ...................................... ........ ...... .......6-1 Public Improvements................................................................................................. 6-2 Stormwater Management and Low Impact Development (LID) ..............................6-2 Development Review............................................................................................,..... 6-2 Appendices VPS Process and Results Public Comments - Focus Group, etc . City of Golden Valley o.-(/" 1-394 Corridor Study S~ction 1: Introduction 1-1 . Section 1: Introduction- . lr he City of Golden Valley has been a leader among first-ring communities of the Twin Cities in reinventing itself to meet changes In transportation patterns, housing preferences, and market trends in office, industrial and com- mercial uses. The City responded to the opening of Interstate 394 in the 1990S with a regional 1-394 zoning overlay district that links new development to traffic demand management and intersection im- provements. The City pro actively recreated a new downtown at Hwy 55 and Winnetka Ave, incorpo- rating mixed use and mixed-income housing (Wes- ley Commons) on the site of an aging strip mall. Most recently, the Envision Golden Valley effort set a new standard in citizen involvement, bring- ing more than 700 residents together to develop comprehensive vision statements and supporting themes/ideas that will guide the City in updating its Comprehensive Plan. . Need for Project While these vision statements provide a strong foundation for subsequent planning, they were not linked to specific lo- cations, planning efforts, or zoning districts within the city. City of Golden Valley 0yf' 1-394 Corridor Study Section 1: Introduction 1-2 This 1-394 Corridor Study is the first planning study to make this link. The .study is an initial installment of the City's 2008 Comprehensive Plan, and it will eventually be integrated into that document. There are several reasons this effort is needed. Commercialllndustriallssues Forty percent of the City's tax base consists of older commercial/indus- trial uses, which are gradually be- ing eclipsed by newer development elsewhere. There appears to be a low market demand for vacant industrial space. How can these uses and their settings be improved to remain viable enterprises? How can the City encour- age smaller commercial businesses, rather than the typical "big box" re- tail? The City's commercial and industrial .uses are concentrated in several high- way corridors, including Hwys 55 and 169 in addition to 1-394. A number of these corridors are beginning to show signs of obsolescence and will be stud- ied in the future for potential introduc- tion of new uses or revitalization strat- egies. However, the 1-394 corridor is the location that appears most suscep- tible to change. Essentially, access and visibility from 1-394, a principal arte- rial, have tended to raise land values, increasing pressure for conversion to more intensive uses. At the same time, the proximity to residential neighbor- hoods and concerns about traffic could impact growth potential. 1-394 Traffic Management Issues The 1-394 Zoning Overlay District was developed in 1989 to address traffic management issues associated with . the upgrade of former State Highway 12 to the current 1-394. The ordinance requires traffic studies and manage- ment plans for new dense develop- ment in the interchange areas. The ordinance has been effective in identi- fying needed improvements, but traf- fic increases may soon begin to limit the ability to develop or redevelop land to the intensity that the area's as- sets might otherwise support. Linkages and Connections There are few north-south roads or paths between 1-394 and Hwy 55, es- pecially through the residential neigh- borhoods in the northern part of the corridor. Better pedestrian and bike connections across 1-394 and Hwy 55 are needed, as well as trail connec- tions to the regional multi-use Cedar Lake and LRT trails in St Louis Park. 1-394 is already a high-service transit corridor with two park-and-ride facili- ties in this area: the Louisiana Transit Center, on the south (St Louis Park) side of the Louisiana interchange, and a smaller facility on the south side of the Xenia/Park Place inter-. change. However, demand for parking exceeds supply, and improved local connections to the park-and-rides are needed. Future transit improvements could reduce the level of congestion new development may bring. Housing Issues Envision Golden Valley indicates that there is increasing demand for differ- ent housing types that don't yet exist in the City. Resident surveys complet- ed in 1999 and 2001 also call for an increase in the diversity of housing in Golden Valley. Higher-density hous- ing is becoming more acceptable, but protection of existing neighborhoods is also a key issue. The 1-394 corridor may be a suitable location for higher- density' housing that could serve as a buffer between single-family housing north of Laurel Ave and highway-ori- ented uses to the south. Environmental Issues Much of the 1-394 corridor is built on wetland, primarily peat soils, result- ing in problems with settling of build- ings, roads, and parking lots. Contin- ued improvements to area stormwater management are needed, and there is also strong interest in restoring natu- ral systems like streams and wetlands throughout the area. Regulatory Issues The City has encouraged the use of Planned Unit Development (PUD) standards for most office development in the 1-394 corridor..Each PUD is a unique project, with its own devel- opment standards that relate to an approved development plan. While PUDs can provide needed flexibility on a case-by-case basis, PUD regula- tions often fail to articulate the plan- ning principles and design standards that should apply across a corridor or entire community. The study process will result in updated development codes tha.t establish design standards, improve the transitionsJbuffers be- tween different land uses~ and bring some consistency to streetscape treat- ments along the corridor. An initial assessment of these and other issues in the corridor is shown on Figure 1. How this Study Will be Used The Corridor Study will be implement- ed using three primary tools: . Ongoing planning-the study will be consider~d in reviewing develop- ment proposals and site plans. . Zoning updates-as discussed in the Implementation section of this report, zoning changes will encour- age mixed use and a high quality of City of Golden Valley oyr 1-394 Corridor Study . Section 1: Introduction 1- 3 site planning and building design within the corridor. . Public improvements-as the City makes improvements to streets, public open space, stormwater facil- ities, and other infrastructure in the study area, the principles and rec- ommendations of the study will be considered. Study Process and Public Involvement The City initiated the 1-394 Corridor Study in Winter 2005 by selecting a consultant team and developing a communications plan to guide the ef- fort. This plan, developed by City staff, was designed to build public aware- ness about the study and its mission, and to communicate directly with af- fected businesses and people who live and work in the area. AA Joint Task Force consisting of two .City Council members and two Plan- ning Commission members met reg- ularly with staff and the consultant throughout the process to provide oversight and direction to the study. The City Council and Planning Com- mission were briefed regularly. Outreach methods used throughout the study process included a resident . survey, business survey, resident roundtable, visual preference survey, an open house, and various public in- formation pieces. Resident Survey City staff developed a brief resident survey, which was sent in Spring 2005 to all households in the area east of Brookview Parkway, west of Hwy 100, south of Hwy 55 and north of 1-394. .The survey asked 0 residents what ac- tivities draw them to the area, whether they would support more transporta- tion alternatives in the area, and the key issues that the study should ad- dress. A total of 1,200 surveys were sent, of which 119 were returned. Resi- dents were asked what they liked and disliked about the area, the ways in which they use the area, and sugges- tions for change. Some higWights of the responses are: . Positive comments focused on the diversity of retail/commercial busi- nesses in the area, the newer office buildings, the Laurel Avenue Ponds, the paths and open space, attractive landscaping on many properties, and the overall ease of access to the highway system. · Negative comments tended to fo- cus on the overall appearance of the area-unattractive or rundown buildings, "hodgepodge" of building types and appearances, and lack of consistency in terms of street and building design. Other comments focused on traffic congestion, traffic noise, the amount of surface park- ing, and the interface between in- dustrial and residential uses. · Residents use the area primarily for shopping, dining, walking, and driv- ing through. The majority would support more bike trails, and many would support improved pedestrian access and transit choices. · Residents feel that key issues the corridor study should address in- clude landscaping, building height, building design, density, aesthetics, and stormwater management. Survey results are summarized in Ap- pendix A Business Survey A detailed business study was pre- pared by "City staff and sent to the 190 businesses in the study area. Staff then followed up with phone calls. A total of 47 surveys were completed, for a 26% response rate. The survey focused on reasons for locating in the area, future plans, where their employees live and their modes of travel to work, and re- hitionship with the City. Some high- 0 lights of responses are: . About three-quarters of businesses view Golden Valley as an above aver- age or excellent place for business. . The majority of their employees live outside Golden Valley and do not use public transportation. . Businesses were asked a series of questions about future plans. Ten companies (21 percent of respon- dents) considered expansion or re- o modeling and five companies (10 percent of respondents) considered relocation. . The primary reasons that deter com- panies from remaining/expanding in Golden Valley are cost to lease, accessibility to their site, and avail- ability ofland space. Survey results are summarized in Appendix B and in a more extensive background report. Resident Roundtable For a more in-depth discussion of is- sues raised in the resident survey, about a dozen residents were selected from those who included addresses in their surveys, with the goal of geographic balance and diversitY. These residents met in an informal workshop setting in which they identified strengths/as- sets and problems or challenges facing the study area, and made suggestions for specific improvements. Strengths of the area include: . 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I~Q'" '{~:Jf,1. ,~, ," (j.--"~; 0" n.!. . ;il'~ ;,~ r". ~ #;")(1;'" ~_ ~, ,':",-"',' _' ,_,. w I;,J/:i "'~"(,~:..J:1IJ~'i,,' :,,......j~,, f!it ~ . ..~ ~-1,'}:"'#-':.>> ,J..~~" .... ~!,;:>;:;Z~~ ~~r:;"- V .1. ..:tfr:l. · ( ;r J 1 . -~ ~'. ,.(.." ,,'j", ..\: ~. . \ ,~Sii:orlA.S.'r.1aJ'l' :.ji ,'I' .' -,,~"'l>< 'I . ':! . j , . ,C6wr:iecti:oos I I , i I-----!./,!)' '~l\ , 1 ~ J If"~\~ ~1.1? Ji .1 ~,., r~' " t." -. o Major Intersection o Minor Intersection Preliminary Issues ~ley @ High Pedestrian Use Area 1.394 Corridor Study. Golden Valley, Minnesota URS m Figure 1 Date 01/25/07 J S . 1 I d . 1-5 ectlOn : ntro uctlOn e ic buildings considered aesthetically pleasing, including Allianz and the Golden Hills Business Park. Suggestions for improvements in- clude: · redesign the service road from Loui- siana to Xenia to improve access and wayfinding · add sidewalks and pedestrian walk- ways on or between the north-south streets that directly access the com- mercial area · improve environmental standards and their enforcement (ie, pollu- tion control, landscaping, property maintenance) · develop design guidelines for build- ings and public spaces A summary of the roundtable is in- cluded in Appendix C. Visual Preference Survey .AA. Visual Preference Survey (VPS) is a ., method for assessing community pref- erences regarding the form and ap- pearance of buildings, landscape, and streetscape elements. The' VPS has become a widely used tool for helping community representatives and the general public become familiar with the role of design in creating the ur- ban and suburban environment. The VSP was conducted through images on display boards and on the City Web site. Participants were asked to review images in six categories, and to rate them from lowest to highest in terms of their attractiveness: · Medium-High Density Housing · Mixed-Use Development · Commercial Buildings · Office/Business Park/Industrial De- velopment e. Parking and Streetscape Design · Signs A total of 150 people took the survey. Of these, 82 participated at events (Golden Valley Arts Festival and Pub- lic Safety Open House), 24 at City Hall, and 44 via the City Web site. There was a high degree of consistency between all categories of respondents. Some highlights of the survey are: · For residential development, mate- rials and detailing seemed to be the most important attributes that pro- duced favorable scores. Brick build- ings received higher scores, and narrow wood siding was also rated highly, while buildings with stucco as a dominant material received lower scores. Most of the photos in this category were "controversial," (shown by a broad range of respons- es), indicating varying attitudes to- ward higher-density housing. · For mixed-use development, scores were higher and images were less controversial compared to residen- tial development. Traditional build- ing forms, contrasting colors and . materials, and streetscape activity all contributed to high scores. Build- ings with 'flat' facades, whether stuc- co or brick, received lower scores. · For commercial development, buildings with a multi-story appear- ance received the highest scores, while buildings with a residential appearance were somewhat more controversial. Masonry-and-stucco combinations were preferred, while metal buildings received the lowest scores. · Among office and industrial build- ings, newer multi-story office build- ings were preferred, followed by single-story office parks. Survey results are summarized in the Appendix and in a more extensive background report. Open House An open house was held in December 2005 to review interim study products and general alternatives for the cor- ridor plan. Comments from the open house included the following: · Laurel Avenue Spine Alternative preferred-:-seems to balance busi- ness/residential uses . new housing and structured parking are desirable; prioritize single-fam- ily attached housing; improve green space and trails . traffic impacts-the area is already "everyone's shortcut" . City needs to work to maintain its identity as a first ring suburb · plan is an improvement over exist- ing buildings and facilities; support mixed use and live-work concepts . desire for a small supermarket, cen- tral square .. favor design guidelines for new con- struction if not too stringent . carefully consider cost of any new projects to City and taxpayers Other Outreach Efforts City staff prepared a PowerPoint pre- sentation tracing the evolution of the corridor and key issues being studied; this was presented to the Chamber of Commerce and made available to oth- er organizations and neighborhood associations. A series of articles in Golden Valley CityNews reported on the study's progress and status. Topics included the history of zoning in the corridor and the City, the Visual Pref- erence Survey, and the Comprehen- si~e Plan update. The City also used the new GV DirectConnect, an inter- active web service, to provide citizens , . with updates and information. City of Golden Valley $.<1" 1-394 Corridor Study S~ction 2: Background 2-1 . Section 2: B.ackground . -394 has always been a visible gateway to the City, from its beginning as a cart track that Golden Valley farmers used to take goods to city markets to its current role as an interstate high- way carrying thousands of vehicles daily. Over the years, the area's gradual growth resulted in a col- lection of uncoordinated land uses that don't nec- essarily match current zoning or the community's vision for the corridor. ~ . The Corridor's Evolution Planning Commission and City staff prepared an 1-394 Cor- ridor Study in 1989. Many of the issues and background in- formation identified in that study remain relevant and are referenced or updated in the current study. The study area extended from Highway 100 to General Mills Boulevard. The major findings of the study were that: . "The 1-394 corridor in Golden Valley is highly diversified in . land u~es but highly uniform in failing to meet current code requirements. The corridor, in other words, does not appear to fit well within the parameters of existing land use regula- tion mechanisms." Nonconformities included structure and parking setbacks, unscreened outdoor storage, and multiple structures on single lots. . These nonconformities could be lessened if more than one structure was permitted on a lot, and if shared parking and shared driveways across property lines were permitted: City of Golden Valley ~ 1-394 Corridor Study S<:ction 2: Background 2-2 The study recommended establishing a special mixed-use district with flex- .'ble zoning standards for the central art of the study area, allowing the broad range of nonresidential uses al- ready found there. Recommendations included more flexible standards for setbacks, open space and height limits. Recommendations for the southeast portions of the study area (Turner's Crossroad, Circle Down, etc) were de- ferred until construction of 1-394 was complete. Golden Valley's last Comprehensive Plan update, in 1999 (Golden Valley: A Balanced Approach to the 21st Cen- tury), includes a detailed description of how the 1-394 corridor evolved in tandem with changes in transporta- tion, and the corridor's redevelopment needs. Relevant sections of that report are excerpted below. . Even before its reconstruction as part of the federal interstate trans- portation system, land uses along old Highway 12 had become an issue for the City. The area on the north side of the highway, lying between Turner's Crossroad and Pennsylvania Avenue and extending up to Laurel Avenue was of particular concern. Zoned pri- marilyfor Industrial uses since 1947, the area has also been designated as industrial on all of the City's compre- hensive plans since 1959. It is a ma- jor entry to Golden Valley for many travelers, and is visible to many oth- ers passing through on 1-394. . Most development in the area oc- curred in the 1950S and early 1960s. At that time, there were no on-site parking requirements specified in the zoning code. There were setback re- quirements, but an interesting clause in the code said that, if an Industri- ally zoned property was surrounded by other Industrially zoned proper- ties, and the owners of those adjacent properties did not object, then the owner of the subject property could disregard the setback requirements as long as minimal emergency access to the rear of the lot was available somewhere nearby. Substandard parking and setbacks characterize the area to this day. As long ago as the 1960s, changing land use demands along the highway corridor began exerting pressure on Golden Valley to allow more com- mercial uses-particularly those with a strong automobile orientation-in the area. It would have been appro- , priate to reclassify part or all of the area in either the 1973 or 1982 land use plan and then rezone for com- mercial use or establish a new zoning district specifically to accommodate auto-oriented uses. Instead, the City began to add certain individual com- mercial uses to the Industrial district provisions as requests came up. Not only has this caused a conflict with the comprehensive plan designation of the area for industrial use, it has also been in open conflict with the specific purpose and intent statedfor the zoning district. In more recent years, nonconform- ing uses have proliferated in addition to the area's other problems. Unlike the handful of commercial uses that have actually been added to the per- mitted use list for the Industrial zon- ing district, these are retail outlets that are not allowed per the code. For the most part, it appears they came in as legal industrial uses and then evolved to something more com- mercial in nature... In several other cases, businesses came in ,as whole- salers or distributors and were al- lowed to set aside a small portion of the building for display or servicing; over time, that floor space expanded until it achieved the scope of a retail outlet, complete with advertising to the public. The corridor's problems prompted the City to include part of it in the Golden Hills Redevelopment Area in 1984. The redevelopment plan has been im- plemented since then by the Housing and Redevelopment Authority (HRA). Results of that redevelopment include several signature office buildings-the Colonnade and Allianz-as well as the Holiday Inn Express and the Golden Hills Business Park, with multiple of- fice tenants in separate buildings. City involvement in redevelopment was fa- cilitated through creation of a Tax In- crement Financing (TIF) district. This district will expire in 2015. Extensive involvement by the HRA in future redevelopment in the 1-394 Corridor is not anticipated. Rather, re- development will come about through a series of private initiatives, with City guidance and, where appropriate, public-private partnerships on specific improvements. Urban Design and Visual Analysis Figure 2 depicts some of the more noticeable visual features of the cor- ridor as well as some of the identifi- able opportunities for improvements. Features highlighted on the graphic include: · views of the downtown Minneapolis skyline, looking east along Laurel Ave · views over the corridor from the pe- destrian overpasses at Pennsylvania and Florida Aves . the number of "concealed" sites- that is, sites below freeway level and largely invisible-at the Louisiana Ave interchange · areas that suffer from a lack of land- scaping, excessive paving, or under- utilized buildings and parking . existing and potential bike and pe- destrian routes, many extending from the residential neighborhoods north of Laurel Ave into the corri- dor City of Golden Valley ~ 1-394 Corridor Study -..... - Section 2: Background 2. 3 . ~ 11~'-!~\l ~ ~ -----.J' .Hj' ~-, '-='i-.~J" \ \~ ~")p? '~/"','\.," ,'1'LP-:r:- ~ '~ \\1F1IT:@u --rL~~ ~~ 0~/r' '~~~ -'iT[" i ~y , '~' 1 q --1' J'T/YI' ;I'n~. "~~I:f\I · ,'F\)d:X((~' 0\ , j\':, " \ II', ,,' ,i Vr n llill ~I ~"""':"LJ;!j')_J~ \L~_ -~6lY , IT ,-': ..-r,~; , . ,~: f\ j \~" I~ ~" v'I<,~: 1 \ \ l' ~. 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Roadway Vistas · · · Retaining w,ans V IS U al An alys IS ey , ~ '" _... ~ Freewa lAd acent land (i!) ""'.~ ~ ) BikelPedestrian Opportunities .. Hampshire Road Improvements ~ Grade/SimIlar Flour. 2 0010 1>'2OI<l6 . S~ction 2: Background 2-4 Currer)t Land Uses As described above and shown in .igure 3, the primary study corridor (extending from 1-394 to Laurel Ave) has evolved into a highly diverse mix of commercial, office and industrial uses. East of Colorado Ave, office uses dominate around the Xenia Ave in- terchange, indicating the influence of the Golden Hills Redevelopment Plan. The Allianz corporate headquarters and the Colonnade office tower are the largest uses in the area. A seven-acre site at the northwest comer of Xenia Ave and Golden Hills Dr (the former Olympic Printing site) is currently pro- posed for a mixed use development. West of Colorado, industrial and com- mercial uses are closely combined, with a large cluster of auto-related commercial uses-auto dealerships and service facilities-close to Louisi- ana Ave. Visibility from 1-394, or the lack thereof, is significant; many land .ses at Louisiana are largely concealed from the highway itself, although par- tially visible from the overpass. Public open space is concentrated along Laurel Ave, where the City creat- ed the Laurel Avenue Greenbelt ponds (using existing natural wetland areas) · "";;'.:''if!i fZ,'!~~~~lJIIIty,; h~'.'t ~l.' If'- i')~~~~; ,::-!~,~: .{- ; ~ ~ - ...:...;. JI.." il;. ~ ~ .~. ". .~fl/ft'(""-i':;'/"'" '~~.'p ~ r'~,,~"',;, ,': ~1 ~'" (.t' "~ ;'Y',;:' .'>' . I'.,. ..' \'1 j';h.: ~ ..;tA' I . t.'.' J ,. ~~!! j ,J ~,~. . "i'\ ~.' '~. &.~ 1\ '\ ,J ~'t'r:l~;'l' ;,,,:',,' 'J ~l-;' ~.'.~, - :;,"",-...~.,...--- Trail around Laurel Avenue ponds in the mid-1970s to help solve drainage problems in the area while providing a public amenity. The three ponds of the Greenbelt are generally considered one of the study area's most attractive features, and trails are enjoyed by area residents and workers. Outside the primary study corridor (bounded by Laurel Ave, Turners Crossroad and Rhode Island Ave) single-family housing is the dominant land use, interspersed with several multi-family complexes near Xenia Ave. Two large religious institutions occupy the block between Hampshire and Jersey Aves. A sheltered work- shop and an office warehouse building are located north of Laurel at Pennsyl- vania Ave. Figure 3 identifies land uses in several categories: . auto-related commercial, including auto dealerships and service estab- lishments . commercial/retail uses, including many of the small fast-food restau-, rants and other highway-oriented businesses · industrial . industrial/office combined (primar- ily industrial with a smaller office component) . mixed-use office-applies to the Golden Hills Business Park, and in- cludes some limited industrial uses . multi-family residential ' . institutional, primarily churches . open space, including parks and stormwater basins Approximate acreage of each land use type is shown in Table 2-1. Natural Resources Soils in the corridor are known to be problematic. Much of the area was once wetland, and subsequent drain- age for development and road con- struction has left large areas of muck and peat soils that are highly suscep- tible to subsidence. The 1989 Corridor Study noted: rlf:fir'J [.,m , Auto Related Commercial 15 Commercial/Retail 16 Industrial 9 Industrial/Office 4 Mixed-Use Office 5 Multifamily Offic-e 9 Public/Open Space 3 3 33.0 38.8 28.6 19.3 29.8 2.6 23.6 20.6 Source: City of Golden Valley, 2005 (does not include rights-oj-way) At many locations, the underlying soils have been disrupted by fill or cut-and-jill practices. The difference between 'Jill" and "cut-and-fill" is that the latter has a higher organic content, being composed largely of soil that was cut from surrounding high ground and dumped into the low spots, while the former is char- acterized by pockets of household trash, demolition' debris, and other frequently unsavory artifacts. Many buildings in the corridor, includ- ing Menard's, the Florida West office/ warehouse, and Burger King, were built on wetlands and required pilings, and extensive soil remediation. City of Golden Valley ~ 1-394 Corridor Study S~ction 2: Background 2-5 Figure 3: Land Use Golden Valley is located almost entire- ly within the Bassett Creek Watershed, which is managed by the Bassett Creek Water Management Commission. The study area is within this watershed. .The City's Surface Water Manage-. ment Plan was completed in 1999. It addresses the issues of water quality, wetland protection, stormwater man- agement (storm sewers and ponds), and sedimentation and erosion con- trol. Within the study area (identified as the Sweeney Lake sub-basin of the Bassett Creek Watershed), the plan identifies multiple ponds and wet- lands, as well as a trunk storm sewer that runs along Laurel Ave from ap- proximately Hampshire Ave, then dis- charges into a stormwater pond along the Canadian Pacific Railroad north of Laurel, then through a series of ponds to Sweeney Lake. Improved water quality (nutrient and sediment removal) is the goal of the City and the Bassett Creek Water Man- agement Commission, with particular .mphasis on water quality ponding, and best management practices for all redevelopment proposals. The Golden Valley Natural Resources Inventory was completed in 2003. The study identifies natural resources in the city according to the Minneso- ta Land Cover Classification System (MLCCS). The MLCCS standards iden- tify and assess vegetative communities in detail, including data on significant native plant communities; rare and . endangered species; wetlands; wild- life corridors; invasive, exotic, and nuisance vegetation; and potential for habitat restoration and public access. The Natural Resource Inventory grouped the city into a series of Re- source Management Units (RMUs) and identified woodland, forest, and wetland communities in each one. The 1-394 study area falls within two RMUs: Laurel Avenue Greenbelt and a portion of North Tyrol Park (east of Xenia Ave). The BBs-acre Laurel Avenue Green- belt RMU is home to a great diversity of land uses, as discussed above. Its central natural feature is the Laurel Avenue Greenbelt and the associated greenway connecting it to neighboring Lions Park, Western Avenue Marsh Smallel" homes at Turnel"s Crossl"oad NOl"th Industrial use, Laurel Avenue . City of Golden Valley'~ 1-394 Corridor Study Section 2: Background 2-6 . Housing 011 wooded lots Near Circle Down ,. ,_ E,.~".!;: " ' ~- L" '--~. . -.......' ~I'~_ , -' , .. ~ - '-.... - _.. - 8lI ~ ~I , Auto sales and service uses Nature Area, and residential areas. The Laurel Avenue Greenbelt RMU includes: · five distinct wetland communities . scattered through the northern part of the RMU and in the Western Av- eilUe Marsh · aquatic communities · floodplain forest in the Western Av- enue Marsh Nature Area · disturbed deciduous woodland and box elder-green ash forest commu- nities around the Laurel Avenue ponds. Nuisance vegetation includes Euro- pean buckthorn around the Laurel Av- enue ponds and reed canary grass in the Western Avenue Marsh. The North Tyrol Park RMU covers the southeast corner of the city, from Xe- nia Ave east to the city boundary and north to Hwy 55 and the Canadian Pa- cific railroad line. Natural communi- ties include areas of disturbed decidu- .ous woodland and other forest types in the residential area on the west side of Hwy 100. The Natural Resource Inventory in- cluded general recommendations for removal of nuisance vegetation, par- ticularly buckthorn and purple loose- strife, but recommended that the City develop further natural resource man- agement objectives. These objectives and related policies will be included in the Natural Resources section of the 2008 Comprehensive Plan. 1 Building and Land Values Various indicators of building and land value were used to identify sites that may be "soft" or susceptible to change. (Note that data was compiled in 2005 and does not reflect more re- cent sales or valuations.) These indi- cators include: · Building Value to Land Val- ue- This ratio may indicate parcels where land may be considered more valuable for redevelopment than for its current use. · Market Value per Square Foot of Land-All parcels outside the Golden Hills Redevelopment Area have an estimated market value of $10-30 per square foot. · Year Built-Most parcels around the Louisiana Ave interchange were built before 1980, and most parcels around the Xenia Av~ interchange were developed more recently, in- cluding the Golden Hills Business Park. · Last" Date of Sale-A majority of parcels west of Hampshire have remained in the same ownership since 1970 or earlier. Most parcels between Hampshire and Colorado changed owners between 1991 and 2004. · Last Sale Price per Square Foot of Land-A majority of parcels be- New Allianz office complex tween Colorado and Hampshire sold for between $7 and $16 a square foot. Outside of this area, most par- cels sold for less than $7 a square foot. · Building Value per Square Foot Building Area-The parcels west of Menard's and east of Loui- siana Ave have building values from $27-$120 per square foot of build- ing area. Most other parcels west of Colorado have values of less than $27. These maps were combined to create a single "Susceptibility to Change" graphic (Figure 4). It identifies sites with lower land and building values, low ratios of building to land value, and older structures. Recent Development Proposals During the period of this study, sev- eral proposals were introduced in the Xenia Ave/Park Place interchange area in both Golden Valley and St Louis Park. These have been' consid- ered in the traffic analyses discussed below and in development of the cor- ridor plan. Their status in late 2006 is as follows: · Former Olympic Printing Site- This site, at the northwest corner of Xenia and Golden Hills Dr, is currently proposed for de- velopment as a mixed-use PUD, to include an eight-story office tower, City of Golden Valley CV7' 1-394 Corridor Study Section 2: Background 2-7 . about 10,000 square feet of retail and restaurant space, and a 1,058- stall parking structure. A second phase would include a lO-story con- dominium tower with 75 units and two parking spaces per unit. · Allianz Expansion-A 200,000- square-foot expansion of the exist- ing office complex was completed in 2006. · Colonnade Expansion-An ad- dition of about 240,000 square feet of office and structured parking is proposed as an amendment to this approved PUD. · West End Development-This proposal by Duke Realty covers a 49- acre site in the southwest quadrant of the 1-394jHwy 100 interchange. The majority of the site is in St Louis Park but includes a small area in Golden Valley. A draft environmen- tal review document (an Alternative Urban Areawide Review, or AUAR) has been prepared for the site, con- sidering four build scenarios with a mix of office, commercial and resi- dential uses, and a fifth scenario re- flecting St Louis Park's current com- prehensive plan. The five scenarios include the following range of uses and square footage: · office space-from 900,000 to 2 million square feet ,in 9- to 20- story buildings · retail space-from 350,000 to 500,000 square feet in 1- to 5-sto- ry buildings · residential units-from 125 to 900 condo units in 2- to 4-story buildings · hotel development-from 125 to 175 rooms · parking-structured and surface parking to serve all uses, ranging from 5,650 to 11,850 spaces . . Development is anticipated to occur from 2007-2011. Transportation and Circulation Issues The 1-394 Overlay District was devel- oped in 1989 to address traffic man- agement issues associated with the upgrade of former State Highway 12 to the current 1-394. The ordinance, adopted by the Cities of Golden Val- ley and St Louis Park, establishes minimum levels of service for each interchange and requires traffic man- agement plans, traffic studies, and potential assessments for new dense development in the interchange areas. Development potential is allocated to cities that share interchanges, and a joint task force of these cities monitors this process. This proce~s has worked well to date, but increasing back- ground traffic has already resulted in poor levels of service at the Louisiana Ave interchange and diminishing ca- pacity at the Xenia interchange that will require mitigation as land uses intensify. When combined with devel- opment pressures in both Golden Val- ley and St Louis Park, traffic increases may begin to limit the ability to devel- op or redevelop land to the intensity that the area's assets might otherwise support. Figure 5, Circulation and Connectiv- ity Analysis, draws from a technical memo, "Overlay Zoning DistrictOrdi- nance Development Update and Anal- ysis," prepared in July 2005 by SRF Consulting Group. It indicates the levels of service projected at the key intersections on Louisiana and Xenia intersections as a result of anticipated levels of development. Traffic projec- tions are based on increased back- ground traffic levels and the develop- ment proposals listed above, as well Pedestrian bridge and franchises along 1-394 as a small commercial redevelopment of the Golden Hills Shopping Centerj Metropolitan Ballroom. They do not include any of the land use changes recommended in this study. The graphic shows the greates~ delays are at the intersections on Louisiana at the south ramps and south frontage road, but the SRF study shows that these could be improved with revised signal timing and coordination. The 2005 report included the fol- lowing recommendations to improve intersection operations in the study area: · optimize signal timing and coordi- nation of Louisiana A vejl -394 south ramps and Frontage Rd intersec- tions . install northbound left-turn lane at XeniajGlenwood Aves . at Xenia AvejGolden Hills Dr, re- stripe westbound approach of Gold- en Hills Dr, install westbound right- turn lane, and modify traffic signal to allow concurrent eastbound and westbound turns . install traffic signal, interconnect system, and coordinate signals at Xenia Ave Current Zoning and Other Regulations As described in the 1999 Compre- hensive Plan (see above under Back- ground), the majority of the study City of Golden Valley ~ 1-394 Corridor Study . -=d r-- ~? ~ z \ ! ! ' i ! j I · I I. ~ ~, 1-394 Corridor Study _ Golden Valley, Minnesota ~ <1.0BuildingILandValue L J 1951-1960 YearP~maryStructure Susceptibility to ~ <$10/SFEMVParcel (..j1961-1970 was Budl Change URS (fl r..;"": ...:;- I/JID < $15 Building Value/SF Figure 4 Date 12/2G'06 ~lley . .. SectlOn 2: Background 2-9 area west of the Canadian Pacific rail line is zoned Industrial, This district .' s designed "to provide for industrial and manufacturing uses which "re- quire isolation from residential and commercial areas." Permitted uses include offices, warehouses, lumber and building materials sales and gen- eral manufacturing, as well as lodg- ing, kennels, and miscellaneous other uses, Most retail, auto-oriented, and outdoor sales uses are conditional. However, as the 1999 plan indicated, these uses have been allowed to prolif- erate, so the area now appears as more of a commercial district. While this district does not require a minimum lot area or width, it does re- quire deep landscaped front yard set- backs (35 feet, or 75 feet opposite resi- dential uses), and these have enhanced the attractiveness of many properties while providing a buffer for adjacent .esidential uses. However, many prop- rties are nonconforming with regard to these and other setbacks. East of the Canadian Pacific rail line and north of Laurel Ave, nonresi- dential areas are zoned Business and Professional, a district designed "to provide an exclusive office district with incidental retail." The large Al- lianz and Colonnade office complexes were developed as Planned Unit De- velopments, allowing greater build- ing height and flexibility as a way to achieve higher-quality design. Other districts that apply in small parts of the study area include: . 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I Ovetpass II / J. r---., 1 r ~ \ 1! · / /-) I. ,( \\, ) ~: \'(\ \ /// Ii ( 1..---'1 ,'\ Signal tlml"f\ -~ ,'/ "--- ) II " ~ ~' ~ l/w. 1-394 Corridor Study _ Golden Valley, Minnesota L. ~ RoadwaylmprovemenlS C" I t" d "'"'"? _ _ _ Ircu a Ion an ~ Inle/section Level of SelVlce wJth " " " ' URS (f>l.~- (j) __....._ ,"-~-~-_.'-- Connectivity AnalYSIS lley are from SRF Technical Analysis Report 12-13-041 . Flgur. 5 0.1. 12/2G106 . Section 3: Guiding Principles 3-1 . Section 3: Guiding Principles . IA s a first step in formulating the Corridor Ii Plan, eight guiding principles were de- veloped. The principles are concise state- ments that establish the direction and intention of the plan. They were adopted by the City Council in December 2005. 1. Enable the corridor to evolve toward a diverse mix ofland uses, including residential as well as commer- cial and industrial. A mix of activities, uses, and densities will help sustain the corridor through changing economic cy- cles, consumer preferences, and housing trends. Mixed uses can create synergies and increase the level of pedestrian activ- ity. Active uses (such as retail) at ground floor level can help to create activity after working hours. At the same time, the corridor should complement, not compete with, the Hwy 55/ Winnetka district, now the City's true 'downtown.' 2. Maximize integration rather than separation of land uses, where appropriate. Many land uses can ben- efit from increased integration with one another, including neighborhood-serving retail, multi-family and senior hous- ing, offices, and low-impact services. Other land uses, such as auto-oriented commercial or industrial uses, can benefit from integration with similar uses but need to be buffered from residential neighborhoods. . 3. Maintain the corridor as an employment center. Jobs within the corridor help maintain Golden Valley's jobs- housing balance while sustaining commercial enterprises. Re- taining 'living wage' jobs should be a priority. City of Golden Valley ~ 1-394 Corridor Study 4. Improve the visual coherence and attractiveness of the corri- . dor. Improvements in streetscapes, landscaped areas, open spaces, build- ing aesthetics, and parking/service areas all contribute to a more unified and visually appealing environment, with an increased sense of identity. Buildings and other private improve- ments should make positive contribu- tions to the district and the broader public realm, while public improve- ments should set the standard for pri- vate investmeilt. 5. Improve connectivity for all modes. The development of 1-394 and subsequent road realignments . have resulted in a discontinuous and confusing circulation system. Im- provements in east-west vehicular cir- culation and north-south pedestrian circulation are most needed; however, roadways should be designed to be A~ttractive and safe for all modes of ~avel. 6. Foster neighborhood-serving retail and services. Commercial development should include a variety of small independent businesses and larger enterprises that serve City resi- dents, supplementing and broadening the current mix of commercial uses. 7. Maintain or improve the func- tioning of intersections and highway interchanges. The func- tioning of the 1-394 interchanges at Xenia and Louisiana Aves, and other key intersections within the corridor, is critical to maintaining commercial viability and neighborhood quality of life. New development must be care- fully planned, evaluated, and designed so that interchanges and intersections continue to function at an adequate .level. 8. Foster sustainable develop- ment and work to establish a bal- ance between urban and natural systems. Encourage the application of green building and infrastructure techniques. Examples include low- impact development that maintains the natural functions of the land, re- duces storm water runoff, and fosters resource conservation and the use of renewable systems in new construc- tion. City of Golden Valley ~ 1-394 Corridor Study .. , Se,ction 4: Alternative Scenarios 4-1 . Section 4: Alternative Scenarios lr wo general scenarios for the corridor's evolution were developed as a way of clari- fying the choices and options available to landowners and the City. . The "Laurel Avenue Spine Alternative" (Figure 6) views the corridor as a series of parallel sub-corridors centered on Lau- rel Ave, with its ponds and open space forming the transition between residential uses to the north and mixed use devel- opment to the south. The Speak the Word Church parcel is recommended for multifamily housing, should the current use relocate. The industrial uses west of Pennsylvania and east of Rhode Island Ave are proposed to transition towards medium-density housing. The parcels and land uses closest to 1-394 are served by a continuous "backage" road instead of the current discontinuous frontage road. These "freeway edge" land uses are anticipated to remain a combination of freestanding retail and large, highly visible office uses. The "Laurel Avenue/Freeway Employment Focus Alterna- tive" (Figure 7) envisions a continuation and expansion of the large-scale employment uses, including manufacturing, in the corridor, while potentially replacing the auto dealerships south of Laurel Ave. A new street parallel to Rhode Island Ave is shown dividing new medium-density housing from the in- dustrial uses. North-south connections between the current frontage road and Laurel Ave are strengthened, with several new local street segments. . Table 4-1 compares these alternatives. City of Golden Valley Oy;f" 1-394 Corridor Study .. Section 4: Alternative Scenarios 4-2 In general, the Task Force and Plan- ning Commission, as well as area resi- . dents, preferred the Laurel Avenue Spine Alternative as offering a more logical series of transitions betWeen residential and commercial/office uses and providing more opportuni- ties for higher-density housing. How- ever, each alternative should be viewed more as a broad-brush concept than a specific plan. City decision-makers re- alize that the evolution of the corridor will be driven largely by private ini- tiatives rather than large-scale public redevelopment. Therefore, incremen- tal change, rather than radical altera- tion, should be anticipated and will be guided by the City's development standards. Figure 8, Site-Based Alternatives, builds on this idea of incremental change, envisioning alternative sce- narios for specific blocks or parcels that were identified as being suscep- tible to change. A sample redevel- opment scenario was developed for each identified site, involving new residential, office, retail, or manufac- turing uses. These scenarios are not intended to prescribe those particular uses for those sites, but rather to show how each site could be used more ef- ficiently and intensively. In each case, sufficient parking spaces for each use, as well as stormwater.management fa- cilities, are provided on site. These development scenarios were then used as a basis for traffic analysis and incorporated into the Illustrative Development Plan, discussed below. General Concept Introduction of medium- to high-density housing and mixed Retention and creation of high-quality employment opportuni- use along the Laurel Ave 'spine' and several north-south con- ties. The Louisiana Ave area is the primary focus of this alterna- necting streets. Auto service uses and car dealerships would tive, while the Xenia Ave area will continue to develop as currently gradually be replaced with uses that would bring new residents planned. Light manufacturing and office uses predominate. Most and neighborhood-oriented services to the area. Light manufac- car dealerships are expected to phase out gradually. Small freeway- turing may continue in some locations or phase out gradually. oriented retail uses remain, with improved site design and internal circulation. Primary land Uses Vertical mixed use, multi-family housing, offices, continu- ing light manufacturing and commercial use. Supermarket is a preferred use. Central square or plaza offers opportunities for interaction. Structured parking will be necessary for more intense uses. Light manufacturing, office, office-showroom and commercial uses. Medium-density residential and mixed uses in a few 'edge' loca- tions. Most uses can be accommodated with surface parking. . vertical mixed use (structured parking) . single-family attached housing . multi-family housing structured parking) . multi-story office (structured parking) . low-rise officejIight industrial . free-standing commercial Building Types (priority order) . low-rise officejIight industrial . multi-story office (structured parking) . free-standing commercial . vertical mixed use . single-family attached housing . multi-family housing (structured parking) Related Street Improvements . Phased improvements to 'straighten out' frontage road . Phased improvements to 'straighten out' frontage road . Laurel Ave traffic calming . Interchange and intersection improvements . Interchange and intersection improvements Related Design Standards Landscape enhancements-screening of service and parking Landscape enhancements-screening of service and parking areas. areas. Materials and design standards for buildings. Higher Materials and design standards for buildings. degree of design review for new mixed use and residential buildings. City of Golden Valley ~ 1-394 Corridor Study . ~~~ . .. Freeway Edge and Image Land-Uses <= Access Points Laurel Avenue Spine Alternate Figure 6 OIl.. ,2/20108 ~ley ~ 0 IW 2Ol) .xl'"' \ 7} ""..---=.....1 . . ~ fr.eeway Ec!g~ 811cJ I 1 magf;J :f..'ancJ-,uses '6l 1-394 Corridor Study _ Golden Valley, Minnesota Laurel Avenue I Freeway · ~ll URS '" ...t..:l'''...r ~ployment F~fltemalive UU~Il va ey . . tP I I ~ c.ll!II . ] L~ j~" ---:.---- "--' I 1-394 Corridor Study _ Golden Valley, Minnesota ... Roadwaylmprovemenls Site Based URS '" ,,,tJ.',...r <= A"'"" P."" ~t~rnatives -.- -.. ~lley . .' S~ction 5: Framework Plan 5-1 . Section 5: Framework Plan . lr he primary land uses that are recommend- ed in the 1-394 Corridor are a variety of res- idential, office, and commercial uses that are can be combined compatibly with one another and will contribute to a more cohesive, diverse and walkable environment. . Land Uses-Primary and Secondary Primary land uses include: . medium- to high-density housing in a variety of con- figurations (multi-story multifamily buildin,?s, the upper floors of mixed-use buildings, attached single-family units such as townhouses) and ranging from rental to owner-oc- cupied (condominium or cooperative) housing. Many would be appropriate for senior housing. . commercial retail and service uses that are integrat- ed into mixed or multi-use developments, gradually mov- ing away from the current. pattern of small free-standing convenience retail. A grocery store is also encouraged as a medium-sized freestanding retail facility that would meet neighborhood needs. . business and professional office uses. It is under- stood that office use can have significant traffic impacts, as regulated by the 1-394 Overlay district, and that large office uses will typically require traffic analyses and actions that will minimize congestion. . open space. The development plan does not identify any sites for new public parks or plazas, but large developments City of Golden Valley ~ 1.394 Corridor Study , Section 5: Framework Plan 5-2 . would be required to provide im- proved open space as part of their site plans. Enhanced streetscape treatments along major streets will also improve the area's appearance. . Secondary land uses include the fol- lowing (these are mainly existing uses that could remain in the area, but could also be replaced by primary land uses): t existing industrial and com- mercial uses. These uses could re- main in the area indefinitely, but the City will consider redevelopment or reuse proposals for sites that may be ready for more intense and market- responsive uses. These include the auto dealerships in the Louisiana Ave area. t institutional uses. Currently the study area includes two large churches and a sheltered workshop north of Laurel Ave. While these uses could certainly remain in the area, if they choose to relocate, their sites should be considered for sin- gle-family attached or other types of medium-density housing, as well as restoration and expansion of the Laurel Avenue Greenbelt wetlands and ponds. Assisted living facilities would also be appropriate within the corridor. Illustrative Development Plan, Louisiana Avenue Area Figure 9 (Illustrative Development Plan) depicts the potential develop- ment scenarios shown in Figure 8 (Site-Based Alternatives), focusing on the Louisiana Ave interchange area, where most redevelopment opportu- nities are located. Proposed land uses . include medium to high-density resi- dential uses, office and manufactur- ing uses, limited new commercial use, and structured parking to serve all these uses. Some uses are combined in mixed-use buildings with ground- floor retail. In reviewing Figure 9, it is important to remember that the ultimate devel- opment plans for each site will depend on market factors, individual devel- opment decisions, and on the zoning. The proposed land uses are just one example of desirable development patterns for these sites. As discussed below under Implementation, the pro- posed zoning district for the corridor would allow all of the land uses shown in the plan, as well as allowing for the continuation of existing land uses. Building Height Limits Building height needs to be regulated to achieve a development pattern that maximizes visibility from 1-394 while achieving suitable transitions to sur- rounding lower-density office an~ res- idential development. Three proposed building height 'zones' are shown in Figure 10 : t high-rise buildings-up to 10 sto- ries-in the area south of Golden Hills Dr and Market St, and on both sides of Xenia Ave t mid-rise buildings-up to six sto- ries-primarily south of Laurel Ave and north of Golden Hills DrjMar- ket St. These heights represent a moderate change from existing building heights in those areas. tlow-rise buildings-up to three sto- ries:-in locations around the edges of the corridor where transitions to adjacent single-family neighbor- hoods are needed Figure 11, Illustrative Development Vi- sualization, shows the same develop- ment scenarios as Figure 10, but from a birds-eye perspective that shows the range of building heights. Traffic Impact Analysis The development scenarios shown in the Illustrative Development Plan were evaluated by the City's consult- ing traffic engineer to determine the change in travel demand that should be expected as a result of these poten- tial changes in land use in the corri- dor. The parcels, identified as Sites A through M in Figure 8 (Site-Based Al- ternatives), were analyzed to compare the traffic generated by existing land uses with traffic generated by planned land uses. The majority of existing land uses are commercial and retail establishments, along with office space. The planned changes would result in a shift to a mix of residential, office and commercialj retail uses. Table 5-1 summarizes the cumulative change between the exist- ing and proposed land uses for Sites A-M and describes the general effect of the change on traffic patterns. The resultant mix of land uses would increase the overall number of daily trips generated. However, the peak- ing characteristics and an associated change in the direction and distribu- tion of trips would focus more trips to the Louisiana Avejl-394 interchange, with moderate increases on local col- lectors and arterials like Winnetka, Jersey, or Xenia Aves. The commercial establishments cur- rently in the study area generate both inbound and outbound traffic during all times of the day, since they are open during normal business hours and provide services to customers that can occur at any time (ie, auto mainte- nance, convenience retail, etc) As these City of Golden Valley ~ 1-394 Corridor Study . o (~o 00 cii" o 'al ~: 0 o o o I o 0 0 0 ~€or.tlaWii7eii:Cle'sF-c _ T -, . r -. C - o 10,0 01010 J _ I o ~ ~...- .... ....... ).. '. I {^""~; e I ",:.I""~' ... !~~:'?t:-t "' I - ... f .- Gort/awn Pond ~...--. ,." -,/ ... ~- ~--:% ~~ ---~ -~~ ~~~~;~lva:JCue ~ ^ ." Pedestrian Overpass Louisiana Avenue Transit Center , , or 0 o ~f 0 . CI)' D ~ 0 c- O;~ 0 Q) c;(i > O~l 0 O'\!i 0 I1l o ~ 0 o ~ 0 ~ CEl "" Ol 0 0 ~ I ~ 0 0 0 0 o ,0 - () -,-~. ...--'. - --.-:-- -.. ~ , , Gf)I~Rills' rD". -- 1-394 Corridor Study - Golden Valley, Minnesota URS \TJ ~..;-,: .~F*tt .. MF Residential - High-rise c:::J MF Residential - Low-rise .. Office .. MF Residential _ Mid-rise .. Commercial .. Office/Manufacturing fi:~ Structured Parking Illustrative Develop-ment Plan Louisiana Avenue Sub-Area ~lley Figure 9 . o.l.OI~7 Section 5: Framework Plan 5- 4 . \ ~) J ~-/~'i ::::::::= ------" J --+-, -- - ~~[IP - \)' '''---;'''- '\,/:' /1~4-~~ \\~qThj' 'L~-~~ ~ ~~"'#fl'-' '~(tr~'", '., 'I 10Y? \, - J _ ~:~ --~,--] i=1 -LI-;Tr' 'TiTTC:JrN-~.B'I~:.' L : ~.,r(), ~~f1~~/'--: D~-J~' \\ \ ~~\\ l-" ",-, r'ir~'T-_-_:\ l'~~"d!~,.I'~,9:~(Q-t '~u_J__~~" -----./ ---:1 ,iT, ' i ..r :U1'~\: ,~!~,L7A\--L-T.L~ -:1.\ " \~..?~-. : I \\ ~\ ~..L --. '~_A,"""~-~-~_~: \\ n:lf n:l'\~-~- --~~ /r, .- _,' C ' _ ' ~ L ,- '" ' " I ' ~'~ - T" ,H~ '. ) - UJ ....~~": ... 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It '()J~ ;;;'o,,)j.J)o ' "\)': RandomfySpaced ~~ ~,. -~ I A l~ :t.QJn.81.o~cll !/ ~ -Benches :~ ~, \. __---1- _L ..:....L-~^\ ~ "-'<')'~,," ~\ \\ ;~I , l , ,~. _,' ,_ ,-r:-, '0; c ll- _, 6."0 _ ""u,T -"' '0 \ '/0 0" '" :~ :n- j "i , -'" 90 ~l' - . ~ C . - . U"" R~""~I" ' " - f- -- 7 Treatment A I.' -- ,., 'r- ,/h "'....>;., 0 J ~_ 0: 0 .y- \ ~ T.~ r~., 'I 0 0 0 0 0 ~__ -StreetSlgns '. ' 1'0 JI' -. :n - J--- IIIW/ ) r'riJ,fi"J ~~ ,rPri.1f(~~~7~1I~ ~ 9-.\~, --1.4 f1'Q] ~~ l-~/ :rrOl~~~TI~~:F4i /0 ~ :o~~//:- I I g- L--~) i & .StreetughtS(24'~) ~ \ I Z:;, i~~~ IL ,..J.:J,Ml Q1 "~'"-\> l:_ ~ ~ -F:lIf'tJr _ :?i~~ \ -" B"io:o 'r.:; :-:/ " -J11 '0' ',~J ,. Y'<V' " . ~ ) :ll- "-' ""'M' ,\ \ -:\-{ ':;;"1-?-- r- . , L u"1 1-;..- . 0 ,0 'C1~~, -- ,I =R,ng 1 Ea"R.,g. , : Cl#lunlII 0 : 0 0, ~ ,I , '-J;' /.";: ~. ,I;?, & orfowshrubs and grasses ,:\:-ll-. = , "--;, 0 10 0' to o~,__.1 I Pond i"J,' ;----, =9 - ' ' X....AIl '~.Furnishfngs" I C w~t . ~f'*; ~~'".} 0.1&::"'4 ~:____1.'-..;~ -,f-."'l -- . 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' L~.-,TU I--I~/~f;{l}-~~?i. -, ' " _, ,U __ c U ,d 'U- 'I' .. ,!-J;;;;i u ./4!J: ......-." ----; ----<.- ~/"'.,'" -- _ '--= ' ~ Ai I I ,,- t I --- \. CJ ---- ~ _" ' I ' ..,--..-. I , .tf.(/J~"-'-jJ.J tU ,.-- .J CJ . ~ ___ _ ' Ill;' -. ---.. ~ ' , ~_" ~ ~ __ . ~ -.-.. .. "J ,. " . t~ ,~/: ''-...i -': r}1~Tf~oo. --r=-=--'--=--~=~ : :-- \ ': '..::~~'11 I .. " "'oJ ' " J , (, . _ j' , .~ m ~ -- Treatment B :, 00 00 '__.'n .":\----... u.r-oo .--- ..-...... \ ~ ~ I ~ ~ ~ ) , LDuisJanaAvenue \:::::-- -- ___ ~9-l~ . Street Lights (24'+) ~~\l /, - ,,,.. '. ~" II I~EXI~fl~D ~~- ~t:;;?4rJnl \.~isting '---:::: ~ 'L,,_"'M<,,"~ - '. .. ~~/ ') I \~ J:3g\~ f~g1?~1J-jJ- _ \' ,- ," ...:IT', ~ IV - --------.:./-394 Pedestrian t- -- lj""-1 . Deciduous o.ve!'5tory,rrees - ~~ >?='/AFl ~ 1// ____, ~ ~ Ove'rpass / / ~" _ r T1'--- _ , I II (Placement vanes by Area or Roadl'vay) Q""-- ''\~ I I ' ,;;/;r' ')' . ,,) (r , '.' ---------..:.. ~ Overpass / <<Iow"""""""""- b .~ C- - ----- -- ~.:-' ~\ ' /q 0f , ;.'.\~ { '\ \"~ r" '( L---. "---. _/' 'F~""" , " /Ii f ' ' · " ( , ; L ~' _ l ;'---- ::::J \ , r -$....""', ~',~ " f-h /, ~ 1-394 Corridor Study _ Golden Valley, Minnesota 41' Y JI Treatment A C::::':> Treatment 0 C> NarrO~lntersecllon . == MSAS~oa~y Roadway and V4I ~ll , _ _ __ ~ ...-", . _....." _ 0 ==" ,= "..."....""" Intersection Treatments WIfDIl va ey URS (D """. ~ C'"'..-.:) Treatment C . Gateway / hea Entry POints Figure 12 0.10 0200".7 . Section 5: Framework Plan 5-7 . -, . Table 5-1. 1-394 Land Use Study: Sites A-M Daily Trip Generation ~'>" ..' - l~~:'-;;;,,;,'~--~ .I.l-friliJ1JIki . "__.m.m . ~ , . . -, - .. __~~~_--l -- I~r " ....-'..1J:.L.-.l.l..l:..'\.--:J ,.-' "'I"~~ Area Residential o (dwelling units) 547,418 (square feet) 210,687 (square feet) Commercial/Retail Office Daily Trips Area - Daily Trips . l:t 939 (dwelling units) -400,428 - 14,370 939 (dwelling units) 146,990 Area Daily Trips 2,660 1,156,000 (square feet) 4,440 -9,930 9,520 945,313 6,860 ~. ~. . Source: Memorandum, SEH Inc, September 8, 2006, No. AGOLDV9801.00 uses are gradually replaced, the vol- ume of traffic entering the study area for those services would decrease. The offices in the study area tend t<? attract inbound traffic in the morn- ing and generate outbound trips in the afternoon. They may also generate traffic over the lunch hour but not on weekends or weekday evenings. . The planned land use changes in the area will result in an increase in resi- dential units and office space with a reduction in commercial uses. Residential land uses generate trips throughout the day, evenings, and weekends. In summary, the land use changes will reduce traffic flow to and from local destinations and result in an increase in commuting trips to job centers else- where in the metro region and to of- fice space within the study area. This change tends to reduce traffic demands on the local arterials and increase de- mands on the regional roadways (ie, 1-394 and Hwy 100). . Streetscape Treatments Figure 12, Roadway and Intersection Treatments, presents a conceptual plan for public improvements in the study area, with the goal of improving wayfinding, visual cohesiveness, pe- destrian comfort and safety, and aes- thetic appeal. Streets are grouped into four general streets cape categories, A through D, based on their function within the area, their current and future volume of vehicular and pedestrian use, and proposed land use changes along these streets. · Treatment A-Applies to the primary north-south interchange streets of Louisiana and Xenia, as well as Win- netka Ave (recently landscaped). Improvements include gateway treatments at major intersections and a heavily landscaped median. · Treatment B-Applies to Market St, Golden Hills Dr, and the remainder of the 1-394 frontage road. Improve- ments are designed to create visual continuity and encourage pedestri- an movement. · Treatment C-A parkway type of de- sign that would apply to Laurel Ave and to the north-south streets that carry lower volumes of traffic than the "A" streets. · Treatment D-A narrower internal street, shown bisecting the block between Rhode Island and Pennsyl- vania Aves, to provide local access to smaller blocks proposed for me- dium-density townhouse and multi- family development. This street type could be used to divide other large 'super-blocks' if these are redevel- oped. All streets are intended to be designed with sidewalks on both sides as a gen- eral rule. Potential sites for gateway treatments are identified at major en- try points to the corridor. Gateways are essentially designed entry points, intended to foster civic and neighbor- hood identity, orient visitors, link peo- ple to the natural or built environment, and establish themes that are carried out in other city districts. Gateway treatments can combine public art, monuments, markers, or decorative sign, landscape treatments, decorative lighting, and other street furniture. The graphic indicates major and mi- nor gateways-major gateways would likely include several of the above- listed elements, while minor gateways would mainly consist of signs or mark- ers and related landscaping. Design Standards Future development within the 1-394 Corridor will largely be initiated and implemented by private landowners and developers. The City's role is to help shape this development by ap- plying design guidelines as part of the development review process. Design guidelines are used by many com- City of Golden Valley ~ 1-394 Corridor Study Section 5: Framework Plan 5-8 - . munities in development review to improve the quality, character, and . coherence of new development in a particular area. Guidelines can help: · guide property owners Wishing to expand, renovate, or construct new buildings or parking · assist City officials, staff, and the general public in reviewing develop- ment proposals · establish a framework for public im- provements to streets, parks, and other public facilities 394 Mixed Use zoning district (see dis- cussion under Implementation), and are also intended as a general guide to inform residents, landowners, and others who live, work, or own property in the corridor. The following guidelines are intended . to be integrated into the proposed 1- Table 5-2. Design Guidelines ~ >-',-~ Driveways and Surface Parking · Locate surface parking to side and rear of buildings where feasible. · Encourage or require shared park- ing between complementary land uses. · Divide large parking areas into smaller increments and introduce an internal pedestrian-orientated circulation system. . Structured Parking · Encourage a specified percentage of 'liner' storefronts along street frontages. · Encourage trellis or other green fea- tures on roofs/sides of structures. · Place entrances to parking struc- tures on side streets, not primary street, where possible. Screening . · Surface parking and servicefloading areas should be screened where vis- ible from street. · Screening may consist of hedges, low walls or decorative fencing high enough to screen parked cars but low enough to allow visibility (3 - 31/2 feet). A berm with low plant- ings and canopy trees may also be effective. ~..-. 0- ~; ,. I. -~" ., .t": I L~ I I. @}(. '11' f'~ I !;JU . (15) dID I ~IlWlL! (IDTirimm'ilID~ Even "big box" buildings can be grouped in a manner that minimizes the amount of parking adjacent to the street and encour- ages walking within the complex City of Golden Valley cyr 1-394 Corridor Study y, Section 5: Framework Plan 5-9 · Encourage interconnected circu- lation within the block. (In this example, rear entrances and shared parking in a traditional downtown setting provide a high degree of interconnection.) Stormwater Management . · Use natural stormwater manage- ment by directing water to natural systems, such as landscaped plant- ers, swales, and gardens, to reduce and filter stormwater runoff. · Building heights 2-8 stories, with careful placement of taller build- ings closer to 1-394 · Buildings 'step down' to neighbor- hood scale · Front setbacks of 10-20 feet · Variety of roof types Mixed Use: Live-Work, Commercial/Residential, Etc · Building heights 2-10 stories, with placement of taller buildings closer to 1-394 · Percentage of active retail at ground floor · No front setback for storefront-type buildings · Flat roofs typical ~ .~~--- ~ r.T;-T~ 'IL.I\~rl '", - ~ filii' \.' '="; I' 'II: '11' 'I :(1,1 :""~1 .t,l'€J.. __",. \--~ ~ Ii! -- j ":"; ':. i: 1"'1 i' I " ('I,'\'~ ' r --. II I.~II '" .111 : ,>', , :',1 Ii ....."'" I";'I-.,,;!j I" ,'~ -" 'I"" ",1.' "'1"-. . I. '. ':,"1 l, "-,~,',I'---:, It, ~-"'1'"' 111,,1' ' :~I' I'. ' !I. - -,I ,c, '. r,o ",: 1'1' 'l"i'l!'" L -... ~ ;--'\' I .- ! J. ,; L'. ," - '-', . L '" , I ' t I ~ I I;..J" I ~II!-'i; ! : '.:' ,j 0 1)11 'Ii" ",', 1: "'1 i, I -. 0 '-t, 0' r " .; L, y;~ l,,;, .;. /.' -:; .f ',:' .... . II> . \1', :',\ I ;r:.'~~9/.11J" ~I:,' Tidj(~}/u ~'~ !':I"1r ,~,~,-,',"~,H,r-_ ~~",~,--.',_'.-" A:~ ~I, "--: ~'~':, '" '.,-:~~,__ ~ . -=:! .. ,,,'. ,..,........,..c. ..o.q 1..-, if. tk ~_, '_. ,__, _~' .."___.._ . City of Golden Valley <:.'-y,1' 1-394 Corridor Study , .- Section 5: Framework Plan 5-10 Table 5-2. Design Guidelines (continued) . Nonresidential: Free-standing Commercial, Office, Industrial · No front setback for storefront-type buildings · Height: minimum 1.5 stories · Long facades should be divided into smaller increments by architectural elements, variation in materials, etc. . · Buildings should have a defined base, middle, and top. The base or ground floor should include elements that relate to the human scale and appeal to the pedestrian, such as awnings, windows, and arcades. · Building tops should be articulated with cornices or parapets. Transparency · A minimum percentage of build- ing facades should be composed of windows and doors. · Commercial and office uses: 30% of ground floor · Residential: 15-20% of front facade Building Materials · Masonry and other durable materi- als are encouraged. Pre-fab metal and concrete block are discouraged. . City of Golden Valley ~ 1-394 Corridor Study , !"{ Section 5: Framework Plan 5-11 Table 5-2. Design Guidelines (continued) . Building Colors · Limit bright primary colors to a small percentage of facade and roof (ie, 15%). Building Entries · Entrances should be clearly visible and accessible from the street. · Street-facing entrances should be architecturally prominent. . Backs of Buildings · Rear facades should be well-main- tained and welcomhig in appear- ance. A well-defined rear entrance is encouraged where there is rear yard parking. Pedestrian connections between rear yard parking and front entrances are encouraged. · Service areas should be screened from view, preferably by walls or fences of materials that are compatible with the principal building. Signage . · Encourage wall signs and monu- mentsigns that are well-integrated with building's design. Pylon signs are discouraged. Projecting signs designed for pedestrian viewing are encouraged. · Signs inside windows should not block more than 40% of the total window area. Sign colors and ma- terials should echo or complement those of the building. City of Golden Valley <;:,~,..i' 1-394 Corridor Study ,. ~ Section 6: Implementation 6-1 . Section 6: Implementation . 1r he 1-394 Corridor Study will be imple- mented through several mechanisms, the most immediate and significant of which is a change in the area's zoning. The other prima- ry mechanisms will include public investment in streetscape and other public realm improvements, review of development proposals, and cooperation with property owners who wish to develop or rede- velop their properties consistent with this plan. . Zoning: 1-394 Mixed Use District As part of the corridor study, an 1-394 Mixed Use District was developed to replace the current combination of industrial, commercial, office, and institutional districts. The district is intended to apply to the entire corridor between Rhode Is- land Ave and Turners Crossroad, as well as several parcels north of Laurel Ave and east of Turners Crossroad, as shown in Figure 10, Building Height Limits. The proposed ordinance includes: . references to the Guiding Principles of this study as part of the statement of purpose . permitted and conditional uses, including the primary and secondary land uses discussed earlier in this section. Per- mitted uses include attached and multifamily dwellings, commercial uses in mixed-use buildings, offices of limited size, and related uses. Conditional uses include larger free- standing commercial and office uses and light industrial uses. City of Golden Valley o..'('}" 1-394 Corridor Study .. yr _Section 6: Implementation 6-2 . · requirements for a mix of uses in spe- cific areas, minimum densities for residential development, required open space for larger projects, and a maximum floor area ratio that is consistent with the 1-394 Overlay District (Section 11.56 of the Zoning Code) · development standards that apply within the district. These are based on the Design Guidelines in this re- port, but are written in more spe- cific and measurable terms. Devel- opment standards are to be applied as part of a site plan review process, with some flexibility to accommo- date alternative approaches or site- specific physical conditions. · site plan review-this process is es- tablished to allow for review by the Planning Commission of develop- ment proposals in the 1-394 Mixed Use District, but may potentially be applied elsewhere in the city, if de- sired. · signs-revisions will be made to the Sign Ordinance to allow projecting signs within the corridor and to en- courage signs that are pedestrian- rather than highway-oriented. . Public Improvements As streets are rebuilt and other pub- lic works improvements undertaken within the corridor, street design will follow the general principles laid out above under Streetscape Treatments, with refinements and adjustments based on actual site conditions and neighborhood input. . Stormwater Management and Low Impact Development (LID) As discussed earlier in this report, most soils within the corridor are former wetland soils that present difficulties for development and for stormwater management. Low Impact Development (LID), as mentioned in Guiding Principle 8, offers one way to improve stormwater management by mimicking natural systems. LID is based on the philosophy that stormwater should be treated as a re- source, not a waste product. Rather than using one or two large, costly treatment facilities at the base of a drainage area, LID uses small cost-ef- fective features at the lot level. These are designed to store and treat rain- water where it falls. If done correctly, LID features are viewed as an amenity by landowners. LID can be incorpo- rated into new development as well as redevelopment projects. Hard surfaces like roads, rooftops, and parking lots, are the biggest cause of stormwater problems, and reducing them is a key element of LID. More important, however, is to break up the connections between the hard sur- faces and nearby water resources. This can be done by using LID features like pervious pavements and green roofs, or simply by redirecting runoff to veg- etated areas and exposing polluted water to plants and soil. The site-based development alterna- tives shown in this study rely on storm- water management on site, rather than on regional solutions. In evaluating on-site management practices, the City will encourage LID techniques such as green roofs, rain gardens, bioswales, and pervious pavement in parking ar- eas. The City may also choose to pur- sue more regional treatment methods, such as the Laurel Avenue stormwater ponds, if opportunities become avail- able. Development Review Review of development proposals ~thin the 1-394 Corridor will occur through the site plan review process that proposed zoning changes would establish. The City may assist with de- velopment projects that advance the goals of this corridor study, through the use of any available financial tools or incentives. City of Golden Valley Oyf' 1-394 Corridor Study