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08-27-90 PC Agenda • GOLDEN VALLEY PLANNING COMMISSION Regular Meeting of the � Planning Commission GOLDEN VALLEY CITY HALL Council Conference Room, 7800 Golden Valley Road Golden Valley, Minnesota August 27, 1990 7:OOP.M. AGENDA I. APPROVAL OF MINUTES - August 13, 1990 (Available Monday evening) II. FINAL REVIEW OF BY-LAWS III. CONSIDERATION OF THE I-394 CORRIDOR STUDY • IV. REPORTS ON MEETINGS OF THE HOUSING AND REDEVELOPMENT AUTHORITY, CITY COUNCIL AND BOARD OF ZONING APPEALS � V. OTHER BUSINESS VI. ADJOURNMENT . MINUTES OF THE GOLDEN VALLEY PLANNING COMMISSION • August 13, ,1990 A regul ar meeting of the P1 anning Commi ssion was held at the Golden Val l ey ',City Hall , Council Chamber, 7800 Golden Ualley Road, Golden Valley, Minnesota. The meeting was call ed to order by Chair Prazak at 7:05P.M. Those present were: Leppik, Lewis, Kapsner (7:05p.m.-8:lOp.m.), McRleese, McCracken-Hunt, Prazak and Russell . Also present were: Mark Grimes, Director of P1 anning and Development; Beth Knobl auch, City P1 anner and Mary D'iold, Secretary. i I. Approval of Minutes - June 11, 1990 ', MOVED by Lewis, seconded by Russell and motion carried unanimously to ap �;rove the June 11, 1990 minutes with the following correction: Page 1. Paragraph 7. It was suggested that the I-394 corridor have a "spec'ial" zoning district, ex gnpting . .. district is rezoned. I, i II. Informal Public H earing - Conditional Use Permit I Appl icant: On-Bel ay, Inc. • Address: 6100 Golden Vall ey Road, Golden Val l ey, Minnesota Request: To operate a residential facility in a Business and Professional Office Zoning District I, , Chair Prazak introduced this item and asked staff for an overvi ew. Mark Grimes, Director of Planning and Development gave a brief resentatiol�� of p n the materi al s submitted by Beth Knobl auch and On-Bel ay, Inc. He asked I the Commission to bear in mind two things. 1) Is the requested Conditional ', Use Permit as a residenti al treatment facil ity compatibl e with thi s particl'ul ar location and 2) is it similar to other Business, Professional and Office (B�h&0) uses. , Peter Beck from the law firm of Larkin, Hoffman, Daly & Lindgren, Ltd. repre- sented the appl icant. Mr. Beck touched on points from the 1 etter that he 'sub- mitted to the commission. He talked about the On-Belay organization, the present centers in operation and the similarity of the Blaine operation to the proposed operation in Golden Valley. He talked about the exterior and interior 1 ayout. Jean Lewis asked Mr. Beck why Golden Valley was chosen. Mr. Beck stated ;that Golden Val l ey was not a search city; On-Bel ay wanted to have a facil ity '�that • would be close to their general offices located in St. Louis Park. Also, 'this site would help control costs and increase efficiency. I Minutes of the Golden Val l ey P1 anning Commi ssion August 13, 1990 • P ag e Two ' Joan Russell brought up a concern for adequate parking spaces. Mr. Beck s ated that there are 25 parking spaces pl anned on the site. However, they d� not expect their need to exceed 15 because there is 24 hour staffing. This palj�king would serve staff peopl e and peopl e who would come in the evening far couns' ling sessions. Mel i ssa Brogger, Program Di rector tal ked bri efly on the screening process, pro- gram structure, requirenents for the residents, security and success rate o the program. Commission Leppik asked when the facil ity would be fill ed to the maximum. Don Benson, President of the Company, stated that this business is cyclica and dur�ng the summer months the facility has a lower occupancy. The facjlity won t necessarily have the 34 beds fill ed all the time. Commissioner Kapsner asked what the reason was for closing their Plymouti� and B1 aine facil iti es. Mr. Don Benson stated that the location was better in G�ilden Ualley and it would be more economical to operate only one facility. r, Commissioner Leppik asked staff about the allowabl e size of residential fa�ili- ti es in zoning districts. Beth Knobl auch, City P1 anner stated that the 1 imit of 25 in a multiple dwelling zoning district with a Conditional Use Permit (CUh) is the requir�nent that the state says that local communities must accept. Any- thing larger than that is at local discretion. Mark Grimes added that the City • of Golden Vall ey adopted this state requiranent three or four years ago. We amended our code to al low residenti al facil iti es of up to 25 in a multipl e family district in accordance with the State Statutes. Chair Prazak opened the Public Hearing. John Richter, owner of the building at 5905 Golden Vall ey Road and representing the tenants, gave a bri ef summary of bringing business into Golden Vall ey� and actions of the Planning Commission and City Council in past years. He r '�com- mended to the Planning Commission that they turn down the request by On-��elay for a Conditional Use Permit. Mr. Richter gave to the Commission a summaiy of his request along with signatures from tenants in the building locate�kl at 5905-55 Golden Val l ey Road. Don Singer, 6014 Golden Valley Road gave a brief history of treatment cente�s in Minnesota. He stated that granting a permit in Golden Vall ey would brea the spirit of the 1 aw if not the 1 etter of the 1 aw and commented on where �hese clients would be coming fr�om by closing the two On-Belay facilities in B aine and Plymouth. He felt the closing of the two facilities and merging int one would concentrate rather than disperse residential facilities. Jean Roth, 6200 Golden Valley Road talked about being in an unsecured bui ding and what kind of security measures would need to be taken if this proposal ,goes through. She feels that this facility is too large for the area. i Leah Wall enburg, 6156 Golden Val l ey Road tal ked about property val ues and the • soft market for townhomes at this time. She wanted to know if property v�lues would go down located near a residential facility. Minutes of the Golden Val l ey Pl anning Commission August 13, 1990 • Page Three Jim Goldstein, 6172 Golden Valley Road is a board menber of Hidden Village and charged with making sure that the common grounds of Hidden Village are main- tained. He is concerned about security of the townhome complex and the resi- dents of On-Belay trespassing on their property. Charl es Wol ford, 6148 Golden Val l ey Road has the cl osest unit to the compl ex and is in favor of the residential facility. Chair Prazak closed the Public Hearing. Mr. Beck and Melissa Brogger addressed the security question. It was stated that the cl i ents are supervi sed 24 hours a day, there are camera monitors in the halls, and the nurses station will be looking directly down the corridor where night rooms are located. The schedule is very intense which leaves little time for anything else. Recreation consists of in and outdoor activities such as basketball , aerobics, visiting the YMCA, trips to local pools and trips to nature centers. No outdoor activity goes on without staff supervision. Commissioner Lewis asked what On-Belay does about runaways. Melissa Brogger stated that they are reported to the pol ice and parents are cal l ed immedi ately. Very few occur. Don Benson stated that he would 1 ike to comment on the security aspect. Treat- ment i s very hard work and cl i ents don't have enough energy to go running • around the neighborhood. On-Belay does have a long track record and neighbors do not wri te 1 etters of recommendati on i f probl ens were ari si ng. Chair Prazak opene�l the public hearing. Leah Wall enburg, 6156 Golden Val l ey Road and felt that her question about property val ues on townhomes was not answered. Mark Grimes stated that the literature on this issue showed that it did not decrease property values. The realtor for On-Belay felt that a well maintained residenti al facil ity would enhance the area. Mary Merlin, 6010 Golden Valley Road, concerns were the recreation for this program, the architect's design for greenery, and space for an outdoor basket- ball court. She felt there wasn't room for the court. Russell E. Frey, 6140 Golden Vall ey Road was concerned about green area being ruined by the construction of a basketball court. Don Gustafson - 6008 Golden Val l ey Road was concerned about recreation area and the potential noise problan. He also stated that there are alot more people affected by the proposed Golden Valley facility due to its closeness to Hidden U i 11 ag e. • Lucille Keltgen, 6170 Golden Valley Road said their Minnetonka facility looks unkept. Also as a single older women, she is concerned about security. Did not buy a townhome to have teens in area and concerned about value of property. Minutes of the Golden Valley Planning Commission August 13, 1990 • Page Four Karin Goldstein, 6172 Golden Valley Road was concerned about the safety of reti rees in area and concerned about the energy 1 evel of worn out teens and what they can do to property. Thomas R. Danahy, 6194 Golden Val l ey Road asked if On-Bel ay would guaranty the val ue of thei r property. P�ichel e P. Weth, 6712 Golden Vall ey Road asked if the program goes wrong, what avenue do Golden Valley citizens have to express their concerns. She also wanted to know about staff/resident ratio. Also if there is a lock in at night, how many staff are locked in with then. Todd Mil es, 6712 Golden Val l ey Road tal ked about the adult residenti al treatment program in the 6700 block on Golden Valley Road and the lack of security that he perceives of that facility. Mel i ssa Brogger, Program Di rector, tal ked about the State of Minnesota guide- lines and that this facility would not be understaffed. Also, when a client goes outside a staff inenber is with than at all times. Hannah Asfaw-Dereji , 6188 Golden Vall ey Road questioned whether the residential facility is compatible. Louis Anderson, 6196 Golden Valley Road said 6100 Golden Valley Road is in an area • that is very, very busy and feels that this is a bad area for the facility. Mona Peck, 6006 Golden Valley Road is concerned as a homeowner. She also wanted to know about noise and how much time the residents were outside. Mel i ssa Broger commented that most residents are only out for approximately one hour. Chair Prazak closed the Public Hearing and announced a five minute recess. The Commissioner resumed the meeting. Mark Grimes stated that the Commission must take action on what On-Bel ay has requested - a Conditional Use Permit for a residential facility in a BP&0 zoning district for 34 beds. The Planning Commission must determine if the proposed application is compatible with other uses permitted in the BP&0 district. Commissioner Russell asked Mark Grimes about the office building across the street being industrial . Mark stated that offices are a permitted use in an industrial district. The owner of that building does not feel that overnight residential use is compatible with their office uses. Mark stated that in Golden Valley mixing of residential and office uses are not permitted in the BP&0 zoning district. Commissioner McCracken-Hunt stated that she was uncomfortabl e with the precedent of having a 24-hour residential use in a BP&0 district. She said she would be � more comfortable with the proposal if the applicant amended the Comprehensive Plan to Multiple Family and then rezoned the property to Multiple Family. A 25 person residential facility would then be allowed by CUP. She believes that 34 persons is too large. Minutes of the Golden Valley Planning Commission August 13, 1990 • Page Five Commissioner Leppik agreed with McCracken-Hunt's statenent. Leppik stated that the Comprehensive Plan for multi-unit residential is a good zoning for that area. Mark Grimes stated that the only way a residenti al facil ity can go above 25 clients is to both amend the plan and zoning ordinance to Institutional . In the Institutional District, there is no size limit to residential facilities with a CUP. Commissioner Leppik stated that if 25 is the maximum site for a residential facility in the Multiple Family District, going to 34 is a 30� increase. This is a farely sizeabl e difference in number and that is why I am more uncom- fortabl e with it. Commi ssioner Russel l said that the residenti al facil ity with 34 cl i ents is high density in character. Commissioner Leppik said that the job of the Planning Commission is to consider if the proposed residential facility in this location is an appropriate land use. The Planning Commission should not base its recommendation on whether or not a 34 or 25 bed facility is more economical to operate. Commi ssioner Leppik said that she bel i eves the On-Bel ay operation is an excellent program and that it is needed in the area. However, she believes that • the number of clients is too many and that applying for a CUP under the BP&0 zoning is not appropriate. Chair Prazak stated by using a CUP as proposed, the City maintains greater control over the use of property. Commissioner Leppik said that she believes that rezoning to Multiple Family and considering a CUP for a 25 person residential facility is the best route for On-Bel ay to pursue. Commissioner Russell asked about the demonstrated need of this type of facility and feels that there is alot of competition out there for this kind of facility. She said she bel i eves that there are younger persons out in the suburbs with drug probl ems that need to be served. However, she has no specific evidence of a need or denand. Chair Prazak said that he understands by talking with people who buy the ser- vices and credits then and licenses than that they would expect this facility to be as full as any other facility of its type. My guess is that it would be even more attractive because of its location closer to more popul ation rather than driving out to Blaine. Chair Prazak said that he talks with people who 1 icense and accredit these facil iti es at the State 1 evel and bel i eves that this facility would be full due to its location. Commissioner McAleese said that in this case there is a demonstrated need � because On-Bel ay will be combining two facil iti es into one in Golden Vall ey with 1 ess beds. Mark Grimes stated that the State 1 icenses these types of residen- tial facilities and they have a concern in not creating too many beds in any one kind of category. He also stated that there is a need for a variety of program choi c es to sol v e peopl es probl ems. Minutes of the Golden Vall ey P1 anning Commission August 13, 1990 • Page Six Commissioner McCracken-Hunt said the first issue that we have to dea� with is the compatibility of a residential facility in the BP&0 district. Commissioner Leppik stated that there are two things which need to be looked at concerning compatibility. 1) the general concern regarding the quality of the residenti al facil ity and 2) i s thi s particul ar program compatibl e. Beth Knobl auch, City P1 anner, stated that even if this had been rezoned to a Multiple Family District, residential facilities in that district are still by CUP. There are some 1 imits that are pl aced on us by State 1 aw. State 1 aw s�ys that the conditions that you put on a residential facility in a Residential District must be to protect the clients of that facility. According to State 1 aw, because these are state regul ated facil iti es they are not a danger to the neighborhood. The City cannot put conditions on because we think the neighbor- hood needs to be protected. The City could put a condition on for a privacy fence, in this situation where it is a tight site, if the City felt that the cl i ents needed more privacy. Mark Grimes stated that a CUP would have to be issued for a residential facility in any zoning district. Also, CUP's go with the property, not the owner. Therefore, On-Bel ay could sel l out to another operator that could run the facil- ity under the conditions outlined in the CUP. Commissioner Leppik asked if the conditions could be made so specific that it is • obviously tied to one company. Mark Grimes stated that the City has to be very careful to write conditions that do not take the rights of a property owner away when they want to sell . Chair Prazak stated that he liked the proposal by On-Belay. He said the faci- lity would create less traffic than an office building. The proposal would improve the site and provide a needed program. He also felt that On-Belay is a good organization with a good track record. Commissioner McAleese stated that he thought this residential facility would be a fine addition to Golden Valley. Unfortunately, it requires that the City look at the zoning code to determine if the use is compatibl e. He said that the BP&0 District was intended for business uses and the uses that support busi- nesses such as day care center in office buildings. The City has never per- mitted residential uses in districts other than Residential Districts. Chair Prazak stated this use is compatible in a multi-family area to the north. Commissioner McAI eese said that he al so had two probl e�ns with the proposal : 1) the land is BP&0 and 2) the City would be setting a precedent that would allow a residential facility in other BP&0 districts without amending the Zoning Code. Commissioner McCracken-Hunt stated that she would support this facility if it were i n a mul ti pl e zoni ng di strict that put a maximum of 25 on it. A1 so, she does not want to set a precedent that would allow other residential facilities • in BP&0 Districts. Minutes of the Golden Valley Planning Commission August 13, 1990 • Page Seven Mark Grimes stated that the City could amend the Zoning Code to allow by CUP residential facilities with more than 25 residents in the Multiple Dwelling District. However, the City would have to think about when a residential faci- lity becomes larger than 25 residents, is it any larger residential in character or is it more institutional in character. Commissioner Russell stated that she is concerned abut spot zoning. Mark Grimes stated that the City is fully developed City and it is difficult to find vacant locations that would not have compatibility probl �ns. Any time the City deals with this issue, the City will be dealing with a zoning change and it's going to be a difficult decision. Commissioner Leppik stated that her feeling was that On-Belay runs a good program and the City should do does need these facilities. Her concern is with the process. She would feel more comfortabl e if the property were rezoned to Multiple Family. Beth Knobl auch said that the P1 anning Commission could recommend that although residential facilities are compatible in the BP&0 district if it were for 25 or fewer people. Then the applicants would have to re-evaluate their concerns about the cost effectiveness and the economic viability of the facility for only 25 clients. The Planning Commission has the right to state that the CUP would be compatibl e if it were only to serve 25 cl i ents. • The Planning Commission agreed that it must first be determined if the residen- tial facility is compatible. Chair Prazak said that by issuing a CUP for the facility the City can write the permit to accommodate On-Belay and the City. Commissioner Leppik said that she believes that a residential facility serving over 25 clients is institutional in nature. The P1 anning Commission made the following recommendations: MOVED by Leppik, seconded by McCracken-Hunt on a vote of five yea and one nay to recommend to the City Council that a residential use in a Business and Profes- sional Office is not a compatibl e use. MOVED by Leppik, seconded by McCracken-Hunt on a vote of five yea and one nay to recommend to the City Council denial of the Conditional Use Permit application to operate a residential facility in a Business and Professional Office Zoning District at 6100 Golden Vall ey Road. III. Planning Commission Review of Amendment to the Transportation and Sewer Elenents of the Comprehensive Plan Chair Prazak introduced this iten and asked staff for a brief summary. Scott • Brink from the Engineering Department gave a bri ef revi ew of the Sewer E1 enent to the Comprehensive P1 an. MOVED by Lewis, seconded by McAI eese to approve the update of the amendment to the Sewer E1 enent of the Comprehensive P1 an. Minutes of the Golden Valley Planning Commission August 13, 1990 • Page Eight Staff gave a bri ef summary of the update to the Transportation Section of the Comprehensive P1 an. It was noted by Commissioner La�vis and McCracken-Hunt that there is a need for bike racks to encourage their use. MOVED by McCracken-Hunt, seconded by McAI eese and motion carri ed unanimously to approve the submitted amendment to the Transportation Section of the Comprehen- sive Plan with the addition of bike racks. IV. Reports on Meetings of the Housin and Redevelopment Authoritv� Cit Council and Board of Zonin Appeals No reports were given. V. Other Business No new business presented. VI. Adjournment Chair Prazak adjourned the meeting at 11:15p.m. � • t � BY LAWS OF THE PLANNING COMMISSION OF THE CITY OF GOLDEN VALLEY • ANNUAL MEETING Section 1. The annual meeting of the City Planning Commission shall be the first regular meeting in March of each year. REGULAR MEETING Section 2. Regular meetings of the Commission shall be held at 7:OOP.M. on the second and fourth Monday of each month. A majority of the member- ship of the Commission shall constitute a quorum. A City staff representative to the Planning Commission shall serve as Recording Secretary. SPECIAL MEETING Section 3. Special meetings may be called by the Chair whenever he/she deems the same expedient or whenever three members request the same in writing. Section 4. The members may adjourn from time to time, absentees being notified. If no quorum is present on the day fixed for a regular, continued or • special meeting, the members present may adjourn until a quorum be obtained, or may adjourn said meeting without a definite day fixed. Section 5. Chair or Staff shall give personal notice to each commissioner, at least forty-eight hours previous to any special meeting, of the time, place, and purpose of the meeting. Section 6. No business shall be transacted at any special meeting other than that named in the call thereof, except by consent of two-thirds of the entire Commission, or by unanimous consent if fewer than two- thirds, but at least a quorum are present. If such consent is obtained, any measure adopted by a vote of a quorum shall have the same effect as if adopted at a regular meeting. ATTENDANCE Section 7. Staff will maintain a record of those Commission members present and those absent for each Planning Commission meeting. Each Planning Commission member is responsible to notify the Planning Staff in the event that he or she will not be able to attend a regularly . scheduled meeting. Attendance is required at all meetings. Absence from four (4) consecutive meetings or one-third (1/3) of the regu- larly scheduled meetings in any one year shall constitute grounds for automatic review of a member's appointment by the Council . It shall be the Chairperson's responsibility to contact the Commission • member involved and report the circumstances for the absences to the the City Council . Page �wo • CONDUCT OF BUSINESS Section 8. Meetings shall be called to order by the Chair, or in his/her absence, by the Vice Chair. In the absence of both, the Secretary shall call the meeting to order. In absence of all officers, the senior member of the Planning Commission will call the meeting to order. Section 9. The minutes of previous meetings shall be submitted for approval and any errors noted and corrections made, after which, the regular order of business shall be taken up. The further order of business, unless otherwise ordered by the Commission, shall be as follows, and may be shown on the agenda of each regular meeting: 1. Action items 2. Planning items 3. Administrative items 4. Other business 5. Adjournment Section 10. All motions and resolutions offered and/or adopted by the Commission • shall be recorded in writing. If it is desired that more than the substance thereof be entered in the minutes, the Chair shall so direct the Recording Secretary, who will incorporate the additional details with the minutes of the meeting. At the request of any Commissioner, yeas and nays shall be taken and entered on the record on any question before the Commission. ELECTION OF OFFICERS Section 11. At the annual meeting in March of each year, the Commission shall elect a Chair, Vice Chair, Secretary, and such other officers as it may deem necessary; but in case of failure to elect at the time spe- cified, the election shall take place at a subsequent meeting without delay. The Chair, Vice Chair, and Secretary shall hold their respective offices until the next annual meeting after their election, and until their successors are elected and qualified. DUTIES OF THE CHAIR Section 12. The Chair or designee shall preside at all meetings of the Commission and may present to the Commission such matters as in his/her judgment require attention. • When the Commission has not established rule of parliamentary prac- tice, the Chair shall be guided as nearly as may be by Roberts' Rules of Order Revised. Page Three • Duties of the Chair (continued) The Chair shall review the Commissioners' attendance records every six months in both February and August. The Chair shall exercise a general supervision over the business, papers, and property of the Commission and shall act as the Commission 's Executive Officer. The Chair or his/her designated representative shall present to the Council all Planning Commission recommendations. The Chair shall perform all other duties as the Commission may prescribe. The Chair may appoint ad hoc committees unless the Commission shall otherwise direct, and shall be an additional member ex officio of all committees. The Chair shall appoint a Planning Commission member to chair each ad hoc committee. The Chair is a voting member of the Commission. DUTIES OF THE VICE CHAIR Section 13. The Vice Chair shall act for the Chair when the Chair is absent or disabled. All duties of the Chair's office or as a member of any • committee shall temporarily devolve upon the Vice Chair. The Vice Chair shall serve as a member of the Board of Zoning Appeals. The Vice Chair shall perform all other duties the Commission �ay prescribe. DUTIES OF THE COMMISSION SECRETARY AND RECORDING SECRETARY � Section 14. The Commission Secretary shall sign the minutes and perform all other duties the Commission may prescribe. In the absence of the Chair and Vice Chair, the Commission Secretary shall call the meeting to order. A member of the Planning staff shall attend all meetings and act as Recording Secretary to the Commission, and shall , in addition, per- form all other duties usually pertaining to this office. He/she shall keep a true and complete record of all proceedings of the Commission, and have charge of all books, documents and papers which properly belong to this office. AD HOC COMMITTEES • Section 15. The Chair may appoint ad hoc committees unless the Commission shall otherwise direct, and shall be an additional member ex officio, of all committees. The Chair shall appoint a Planning Commission member to chair each ad hoc committee. Page Four Ad Hoc Committees (continued) � All committees shall consist of at least three members, except as otherwise ordered by the Commission. Three members of any committee shall constitute a quorum of such committee. If a quorum is not present at a meeting, the members present may prepare reports and submit them to the Planning Commission on behalf of the committee, in which case the report shall name the committee members who prepared it. Nothing in the foregoing shall be construed as waiving the rights of the Commission at any time to increase or curtail the duties of any committee and/or to direct or control its actions. AMENDMENTS Section 16. The above rules and regulations, or any portion thereof, may be suspended by a majority of the members of the Commission at any regular meeting, or may be amended or repealed by a two-thirds vote of the entire Commission at any regular meeting subsequent to the meeting when the same is proposed. • • I-394 CORRIDOR STUDY • Introduction At the direction of the Golden Valley City Council in 1989, the City's Planning Commission and Planning staff began a study of land use and development along the I-394 corridor in southern Golden Valley. The purpose of the study was to form a basis for recommendations on the long-term future of the corridor. Residents and businesses have been disrupted by the construction of I-394, and there has been uncertainty over the long-term stability of the existing uses. While part of the corridor lies within a City-created redevelopment district, there have also been speculative redevelopment proposals for sites not covered in the City's redevelopment plan. The first step in the study was to delineate a study area along the corridor (Exhibit A). This study area was further divided into seven subareas based on easily identifiable characteristics or issues. It was determined that the study should also give some consideration to potential impacts outside of, but adja- cent to, the actual study area. The easternmost portion of the I-394 corridor, east of Hwy. 100, was excluded from the study area. This area, both north and south of I-394, is stable and residential in nature and hasn't been exposed to the type of redevelopment speculation that has arisen on the west of Hwy. 100. I-394 construction has created concerns, particularly regarding such issues as highway landscaping, access, noise, and the ultimate disposition of parcel fragments left over after • the highway widening. Such concerns, however, do not appear to warrant the inclusion of this area in a land use and development study. The small area in the southwest quadrant of the I-394/Hwy. 100 interchange was also excluded from the study because of its size and relative isolation. Area Characteristics Subjects that were examined (Exhibit B) include property ownership, soils and slopes, land uses, regulatory compliance (property nonconformities), potential boundary conflicts, and conformance or conflicts among the various approved plans or other documents covering any or all of the area. Subjects that were discussed but not specifically examined due to various data constraints include transportation, drainage, and land value. The following paragraphs provide highlights of the study findings. Land uses are many and varied, both within and between subareas. The solely residential developments of significant size were isolated for study purposes into three separate subareas, but there are still residential pockets in two other subareas. All four nonresidential subareas consists of mixed uses; even the General Mills Corporate campus, while in the form of a unified development, has a variety of business activities taking place on its grounds. In all , more than a dozen categories of use were identified within the area. This strong mixture of uses makes it difficult to think of any subarea as "industrial" or "commercial" in nature, which is an important consideration for zoning purposes. • I-394 Corridor Study Page Two • The entire study area is also characterized by a prevalence of nonconformities. Structural and parking setbacks fail to meet requirements on a majority of the nonresidential parcels, and in many areas the already-existing nonconformities have been made worse by the necessary acquisition of property for the I-394 construction project. Parking is a problem at scattered locations throughout the area, and parking lot construction and driveway location fail to meet requirements at many sites. Multiple structures exist on single lots in several cases. The central area suffers from improper outside storage, scattered viola- tions of permitted uses, and several violations of the intent of the Industrial zoning district (though these "intent violations" involve uses that have been added to the actual permitted use list). The Comprehensive Plan, the zoning code, and the I-394 Traffic Impact Study (SRF Study) prepared by Strgar-Roscoe-Fausch, a traffic engineering consulting firm, were all studied as existing development guides for the I-394 corridor. The SRF study, unlike the other two, is not a binding document, but because it formed the basis for the I-394 zoning overlay ordinance and because it contains speci- fic street upgrading recommendations that may have to be implemented based on certain types of development in the area, it is important to keep it in mind. In addition, the Southeast Area and part of the Central Area are included in the Golden Hills Redevelopment District Plan. The various documents show a certain degree of agreement within each study subarea, but their broad classifications don't fully encompass the breadth of uses that may be desirable in the area. The quantity of land designated for industrial use may be of particular concern • considering the mixed nature of existing uses, many of which may be there for some time to come, and the long-range desirability of the area for a variety of mixed highway-related uses. Consideration of boundary impacts was primarily limited to the potential impact of redevelopment within the study area on land uses adjacent to, but outside of the area. With only one exception (Hwy 169 at Betty Crocker Drive), there was- no consideration of potential impacts at boundaries contiguous with Hwy 100, Hwy 169 or I-394; the highways are considered to be adequate buffers for land uses on the other side, I-394 impacts were already researched in the SRF study and have been considered in the I-394 overlay ordinance, and other highway access from the study area is limited or non-existent. The greatest potential source of conflict is at boundaries that mark a transition between single family and other uses. Therefore, Rhode Island Avenue, Turner's Crossroad, and Circle Downs are all potentially sensitive boundaries where special buffering require- ments may become necessary. Laurel Avenue is already partially buffered by the greenbelt and by City-owned ponding areas, but may also benefit from some addi- tional planning attention. Anyone who has dealt with development in the I-394 corridor knows that, gener- ally speaking, soils are a problem. A study of soil characteristics might therefore seem to have little to contribute on an area wide scale. The primary value in this case was to provide some documentation of the general knowledge and to provide a graphic exhibit of area soils as a reminder of some important redevelopment concerns. Varieties of mucky peat ranging from poorly drained to marsh or open water underlie much of the area. At many locations, there • underlying soils have been disrupted by fill or cut-and-fill practices. The I-394 Corridor Study • Page Three difference between "fill " 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 characterized by pockets of household trash, demolition debris, and other frequently unsavory artifacts. There are scattered areas with soils of intermediate development quality throughout the area, but only two locations with relatively good devel- opment soils: the far north edge of the General Mills Area, and the West Residential Area. The only significant slopes in the study are located in the East Residential Area. Land ownership patterns can provide indications of potential development assets or problems. For example, large areas under single ownership present an oppor- tunity for more unified development projects, while out-of-town ownership can result in poor communication and poor compliance with local requirements. Most properties in the study area are locally owned, "locally" being defined as any address within the Metro Area. There are some large property owners, General mills and Jim Lupient being the largest, but in many instances the areas under such ownership are made up of unconsolidated individual parcels. Transportation was one of the subjects not studied, though the earlier SRF study dealt with several traffic concerns. It is expected that increasing traffic in the study area will be an important consideration in future development deci- sions. The problem at this point is that no one really knows the full impact • that I-394 will have on local circulation once it is completely open and opera- tional . Current travel routes are certainly disrupted from their normal state, and this disruption has had a negative impact on existing land uses, both residential and nonresidential . It appears to be too soon, however, to conclude that the disruption will have a lasting significant impact. Routes of particu- lar uncertainty include Laurel Avenue, Turner's Crossroad, and Winnetka Avenue. Drainage was also not studied for this report. The City has a drainage plan for- the area, and the City Engineer expects that adequate drainage will be provided for new development in the area. This will include a need for additional sur- face drainage ponds, however, which means that not all properties in the area can be developed to the fullest extent permitted by the zoning code. Necessary ponding areas will have to be identified before development proceeds too far. Land value was the final subject that was discussed but not studied in depth. The problem again relates to the influence of I-394. The construction process has caused some problems for area land uses, and this may in turn have had some impact on current land values. However, no one really knows what might occur when I-394 is completed and the current mess is cleared away. Property values can be an important consideration when trying to determine the long-term viabil- ity of existing uses or the ability of outside agencies to go in and clear an area for redevelopment. Conclusions • Two basic conclusions can be drawn from this study. The first is that the I-394 corridor in Golden Valley is highly diversified in land uses 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. I-394 Corridor Study Page Four � Many of the nonconformities, however, are based on potentially sound planning concepts, if they could be regulated somewhat differently. Right now, the only legal way to put more than one principal structure on a single lot is through the P.U.D. process, but it might be worth investigating other avenues. Shared parking and shared driveways across property lines are also not permitted by existing standard zoning provisions, but make good sense in terms of reducing curb cuts into high volume streets. It might be desirable to reduce or elimi- nate side and rear setback requirements in order to concentrate landscaping along the street, where it has the most impact. Even the mixed uses may have their place, though it can weaken enforcement ability in standard zoning districts if, for example, too many retail uses are included as permitted uses in an industrial district. The second conclusion that can be drawn is that some potentially important con� siderations in determining the long-range future of the corridor cannot be pro- perly assessed at this time. While the aim of planning is to establish sound land use guidelines before development - or in this case, redevelopment - begins to occur, it would be premature to make some decisions without being able to assess the factors that are still missing. It is the areas with the highest sensitivity to change that are of the greatest concern here. These include the West and East Residential Areas, both formerly stable but recently suffering some disruption because of I-394 construction, and both open to some speculative proposals by private developers. Also included is � the Southeast Area, another site for speculative proposals, and an area with a fair amount of state-owned land that may be turned back to private hands for development. Recommendations The Planning Commission recommends as follows: 1) Establishment of a special , mixed use district incorporating flexible zoning requirements for the I-394 corridor. The Central Area should definitely be included in this district. The General Mills area may be included as a subdistrict with somewhat more limited uses, or may be open to all uses. The comprehensive plan and zoning code should be amended accordingly. 2) Continuance of existing comprehensive plan designations for the North Residential Area, those designations being medium and high density residential , and institutional uses, along with the Laurel Avenue Greenbelt. However, staff should review the provisions of the Multiple Dwelling District section of the zoning code and should pro- pose ways of incorporating new provisions governing multiple princi- ple structures and shared parking/driveways. � , I-394 Corridor Study Page Five • 3) Continuance of comprehensive plan and zoning designations for the West Residential Area and the East Residential Area, for a period of two to five years following the date of final completion and opening of all segments of I-394 currently under construction, at which time the designations may be reassessed and altered or made permanent. This means that both areas should remain entirely single family in use and in planned use until the impacts of I-394 on traffic and on land values can be evaluated. An exception may be made for the vacant par- cels at the south edge of the West Residential Area if a proposal for multi-unit residential development is put forth, but no nonresidential proposals for those sites should be accepted at this time. 4) Continuance of Zoning designations for the Southwest Corner for a period of two to five years following the date of final completion and opening of all segments of I-394 currently under construction, at which time the designations may be altered or made permanent . The zoning designations are not in conformance with the comprehensive plan (which specified office uses), and it is questionable whether a request to rezone in conformance with the plan could be denied. Allowance of such a rezoning is not considered to be a problem, however; the main concern here is the protection of the residential "pocket" of nine homes until such time as its long-term stability can be evaluated. An alternative recommendation is addition of this area • to the proposed mixed use district. 5) Continuance of Zoning Designation for Southeast Area until I-394 is completed in the area. This area is currently zoned Commercial and Multiple Family. This area is greatly impacted by the construction of I-394 due to the new interchange with TH.100 and the elimination of an at-grade intersection with Turner's Crossroads. There are several concerns regarding this area that have not yet been resolved that may effect the recommended future use of the property. These concerns include: Timing of MNDot disposition of excess right-of-way after I-394 construction. 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