Loading...
09.c1 CPA Density & Zoning - CC Packet1 | P a g e Date of Meeting: January 16, 2024 To: Honorable Mayor and Members of the City Council From: T.J. Hofer, Consultant City Planner Re: Comprehensive Plan Amendment for Density and Zoning Discussion The City has identified a conflict between the 2040 Comprehensive Plan and the Unified Development Code (UDC) that sets inconsistent density standards in the Village Neighborhood (V-N) Base Zoning District. Staff has prepared draft language to update the Comprehensive Plan and is seeking Council direction to move forward with the amendment. BACKGROUND In June of 2023 the City identified an error in the 2040 Comprehensive Plan regarding density because of an application that proposed development in a Village Neighborhood guided area. Staff has reviewed densities within the Comprehensive Plan and has attached a draft copy of the Comprehensive Plan to detail the proposed changes. The Council discussed the issue at their June 20, 2023, meeting and gave direction to amend the Comprehensive Plan. At the same meeting the Council identified parcels on the Future Land Use Map that were incorrectly guided. In August of 2023 the Council reviewed draft changes to the Comprehensive Plan and gave further direction to staff to make additional changes to the Comprehensive Plan that reflect the adoption of the UDC and the names and standards for the zoning districts that were created when the UDC was adopted in September of 2022. ANALYSIS OF STANDARDS A draft copy of updates to the 2040 Comprehensive Plan is attached to this staff report. The proposed changes are related to density, resulting calculations from changes to densities, and the referenced zoning ordinance (the zoning ordinance was replaced with the Unified Development 2 | P a g e Code in October of 2022). Proposed changes can be found on the following pages: 19 – 22, 26 – 32, 53, 120, 123 – 131. A proposed Future Land Use Map is also included within the updates and attached to the staff report that reflects the comments made at the June 20, 2023, City Council meeting by moving the western edge of the Village Neighborhood district further to the east. Staff have highlighted a paragraph on page 26 and 27 that states the zoning ordinance allows for 75% bonus density “for multi-unit developments if providing community value through agricultural land protection, life-cycle housing or natural resource protection or other amenities.” The Comprehensive Plan references Oakhill Cottages as an example of this use. The UDC does not allow for this type of flexibility and does not allow for Open Space Planned Unit Developments within the Village Neighborhood District. Staff have highlighted a sentence on page 56 that states the zoning ordinance allows for density flexibility for life-cycle housing. The UDC does not allow for density flexibility for the purpose of life-cycle housing. ANALYSIS Staff Analysis Staff believes that the proposed changes will address the concerns regarding density identified at the June 20, 2023, and August 15, 2023, City Council meeting. Staff are looking for additional direction from the City Council regarding density flexibility allowances. The Comprehensive Plan references density flexibility for providing open space in the Village Neighborhood district and density flexibility for life-cycle housing that is not reflected in the UDC. RECOMMENDATION Staff are requesting direction from the City Council to make final changes to the Comprehensive Plan and distribute the edits for the adjacent and affected jurisdiction as required by the Metropolitan Council. Attachments A. Select Pages from Draft 2040 Comprehensive Plan Amendments B. 2040 Comprehensive Plan Amendments (Link Only) C. Draft Proposed Future Land Use Map D. Future Land Use Map (Link Only) City of Scandia 2040 Comprehensive Plan – Volume 1 Approved by Metropolitan Council October 9, 2019 Approved by City of Scandia October 15, 2019 Scandia 2040 Comprehensive Plan Land Use Prepared by: Bolton & Menk, Inc. Page 17 • Scandia has a large number of two-person households, which is likely attributed to the large number of older residents. Only 1 in 5 homes in Scandia has children, which will impact schools, services, and future population growth of the city. • Scandia’s population remains fairly homogenous, though the number of residents identifying as Hispanic/Latino has increased. • Residents are becoming increasingly educated, which may influence the desired types of employment and median household incomes. Existing Land Use A large portion of land in the City of Scandia is currently undeveloped, about 41% of total acreage in the city. The most prominent land use in the city is agriculture, making up about a quarter of land in Scandia. Open water makes up 13% of land in Scandia, and residential uses make up about 10% of the city’s total land. Figure II G shows the existing land uses in the City. Table II-G further details current land use in Scandia. Table II-G – Existing Land Use Land Use Gross Acres Percent of Total Agricultural 6,425.5 25% Extractive1 197 1% Farmstead 218.7 1% Golf Course 17 0.07% Industrial and Utility 11 0.04% Institutional 46.6 0.2% Mixed Use Residential 13 0.05% Multifamily 3 0.01% Open Water 3,252 12.8% Park, Recreational, or Preserve 2,147 8% Railway 73 0.3% Retail and Other Commercial 34.8 0.1% Seasonal/Vacation 70.7 0.3% Single Family Attached 9.5 0.04% Single Family Detached 2,610 10.3% Undeveloped 10,347 41% Total 25,475 100% Source: Metropolitan Council Data, 2016 1 Extractive includes areas that identified on an aerial photo as currently mined or mined in the past. Scandia 2040 Comprehensive Plan Land Use Prepared by: Bolton & Menk, Inc. Page 18 Figure II-G – Existing Land Use Scandia 2040 Comprehensive Plan Land Use Prepared by: Bolton & Menk, Inc. Page 19 Table II-H identifies the number of existing housing units in each land use category. Table II-H – Existing Net Residential Density (in Planned Land Use Categories) Planned Land Use Category Single Family Number of Units Multi- Family Number of Units Acres Gross Residential Acres Development Constraints (wetlands, parks, ROW, etc.) Net Residential Acres Net Density Units/Acre A B C D E=C-D (A+B)/E Agricultural Core 229 0 6,953 731 6,221 0.04 General Rural 881 30 9,679 1,232 8,447 0.11 Rural Mixed Use 110 0 419 150 269 0.41 St. Croix River District 60 0 681 114 567 0.11 Village Neighborhood 133 0 1,480 150 1,330 0.10 Village Mixed Use 65 0 287 18 269 0.24 Recreation Area Protected 10 0 2,132 1,566 567 0.02 Total 1,488 30 21,632 3,962 17,671 0.09 Source: Washington County Parcel Data In October of 2022, Scandia adopted a new Unified Development Code to replace the existing zoning and subdivision ordinances. With this change, districts have been renamed and modified. Scandia’s Unified Development Code, which includes both zoning and subdivision standards, zoning code specifies maximum density for various residential development. Based on these requirements, Table II-I shows the number of housing units per acre that can be developed under current zoning regulations. These densities are anticipated to remain the same in corresponding future land uses. Most large lot residential zoning districts require lots to be a minimum of two acres, and all zoning districts have a maximum lot coverage of 25%. Bonus densities in the Village Neighborhood District allow up to one dwelling unit per acre. This is done to make efficient use of existing resources in Village Neighborhood and to guide residential development to these areas to help preserve agricultural lands and open spaces from development. Scandia 2040 Comprehensive Plan Land Use Prepared by: Bolton & Menk, Inc. Page 20 Table II-I – Current Residential Allowed Density Ranges Land Use Category Units/Acres (Ordinance Standards) St. Croix River District 4/40 Agricultural Preserve 1/40 Agriculture Core District 4/40 General Rural District Rural Residential General and Rural Residential Neighborhood 4/40 Village Neighborhood District 4/40 1/2.5 Village Mixed Use A District Village – Historic Center 5/1 ½.5 Village Mixed Use B District Village Center 5/1 1/2.5 When density is regulated by a ratio that references 40 acres, those 40 acres shall be the area defined by the Public Land Survey as Quarter-Quarter Sections. Until sewer improvements are made, zoning in the Rural Mixed Use area will remain General Rural Rural Residential General. The zoning code for the City of Scandia provides a maximum lot coverage for commercial and industrial development. The Metropolitan Council has provided estimates for the number of employees per square feet in various employment types; rates range from 556 square feet per job at the low end (medical clinics) to 2,500 square feet per job at the high end (hotels). Using the city’s lot coverage allowance as guidance, an estimate of jobs/square foot can be estimated to project future employment based on future land use designations and planned development. The Village Mixed Use A District Village – Historic Center District allows a maximum lot coverage of 80 percent. The Village Center District allows a maximum lot coverage of 35 percent. The Rural Commercial District, Village Mixed Use B District and Industrial Park District all both allow a maximum lot coverage of 65 percent. Future Land Use The 2040 Land Use Map (Figure II-H) shows the desired land use for all property in Scandia. Table II-J summarizes the planned land uses by category shown on the map. The planned future land uses shown on this map reflect previous community planning efforts as well as desired updates identified as part of the 2040 Comprehensive Plan Update process. Table II-J – Planned Land Use Land Use Gross Acres Percent of Total Area Agricultural Core 6,953 27% General Rural 9,679 38% Mining 443 1.7% Rural Commercial 75 0.3% Rural Mixed Use 419 1.6% St. Croix River District 681 2.7% Village Neighborhood 1,480 5.8% Village Mixed Use 287 1.1% Recreation Area Protected 2,132 8.4% Open Water 3,252 12.8% Scandia 2040 Comprehensive Plan Land Use Prepared by: Bolton & Menk, Inc. Page 21 Railway 73 0.3% Total 25,475 100% Scandia 2040 Comprehensive Plan Land Use Prepared by: Bolton & Menk, Inc. Page 22 Figure II-H – Planned Land Use UPDATED MAP Scandia 2040 Comprehensive Plan Land Use Prepared by: Bolton & Menk, Inc. Page 23 Future land use designations were determined by a variety of factors, including an analysis of existing land use, the current land use plan, and development constraints. Factors impacting development include: • Existing regional parks, Wildlife Management Areas, and Scenic and Natural Areas; • Steep slopes; • Wetlands and waterbodies; • Roads, railroads, and the Regional Bike Trail Network; • Shoreland and flood plain; • Agricultural Preserves; and • Prime farmland. Figure II-I maps development constraints in the City of Scandia. Scandia 2040 Comprehensive Plan Land Use Prepared by: Bolton & Menk, Inc. Page 24 Figure II-I – Development Constraints Scandia 2040 Comprehensive Plan Land Use Prepared by: Bolton & Menk, Inc. Page 25 Table II-K summarizes the developable land available by decade in future land uses classifications. Non-developable land includes areas that cannot be developed, such as wetlands, steep slopes, and the road right-of-way, as well as existing development. Development is forecasted for each decade at existing land use densities, adding to the amount of non-developable land in each land use. Forecasted development is based on projected housing and employment needs (as projected in Table II-B, Forecasted Population, Households and Employment), minimum lot sizes by each land use district and an anticipated allocation of the projected housing development between each of the land use districts. The planned future land uses shown on this map reflect previous community planning efforts as well as desired updates identified as part of the 2040 Comprehensive Plan Update process. Table II-K – Planned Land Use Net Acres Planned Land Use Category 2015 (Current) 2020 2030 2040 De v e l o p a b l e No n - De v e l o p a b l e De v e l o p a b l e No n - De v e l o p a b l e De v e l o p a b l e No n - De v e l o p a b l e De v e l o p a b l e No n - De v e l o p a b l e Acres Acres Acres Acres Acres Acres Acres Acres Agricultural Core 5688 1265 5588 1365 5488 1465 5388 1565 General Rural 6121 3559 5710 3969 5310 4369 4903 4776 Mining 262 181 262 181 262 181 262 181 St. Croix River District 296 385 206 475 106 575 6 675 Rural Commercial 45 30 44 32 42 34 41 35 Rural Mixed Use 269 150 269 150 269 150 195 224 Village Mixed Use 125 162 109 178 88 199 67 220 Village Neighborhood 1,080 400 780 700 430 1,050 200 1,280 Open Water 0 3,252 0 3,252 0 3,252 0 3,252 Recreation Area Protected 0 2132 0 2132 0 2132 0 2132 Railway 0 73 0 73 0 73 0 73 Total 13,887 11,589 12,968 12,507 11,995 13,480 11,062 14,413 To meet projected housing needs, it is anticipated homes will be developed in the following percentages in each respective land use district. Table II-L – Planned Land Use Development Characteristics Land Use Percent of Anticipated Housing Units Agricultural Core 5% General Rural 21% Rural Mixed Use 5% St. Croix River District 5% Village Neighborhood 60.4% Village Mixed Use 3.4% Scandia 2040 Comprehensive Plan Land Use Prepared by: Bolton & Menk, Inc. Page 26 The following land use descriptions will be used for planning purposes and correspond to the planned land use designations on the Planned Land Use Map. a) Agricultural Core The Agricultural Core district is established to protect and preserve land for long-term agricultural production. Over time, the nature of agricultural production in Scandia will most likely change from traditional dairy farms to specialty agriculture and agriculture production for local/metropolitan markets. Residential development compatible with agriculture uses (4 per 40 density) and parks will be a secondary land use in this district. This designation corresponds with the Agricultural Core Area zoning district in the current zoning ordinance. The City’s zoning and subdivision ordinance should allow density bonuses up to 75% will be considered for single-family developments if providing community value through agricultural land protection, life-cycle housing, natural resource protection or other amenities. b) General Rural The General Rural area land use category is a residential area of mixed lot sizes. It recognizes areas of Scandia that have been developed in the past at densities of ten acre or less and areas that have larger parcels still used for agriculture. The area includes 10- acre parcels, but also a number of existing smaller parcels and some parcels enrolled in the Agricultural Preserves Program. Single-family residential dwellings are the primary land use for the General Rural area at densities of 4 units per 40 acres in the same Quarter-Quarter Section. Secondary land uses include agricultural production, including small-scale production, parks and recreation, and public and private institutions. Recreational commercial uses are allowed as a conditional use. This designation corresponds with the General Rural Rural Residential General and Rural Residential Neighborhood District in the current zoning ordinance. The City’s zoning and subdivision ordinance should allow density bonuses up to 75% will be considered for single-family developments if providing community value through agricultural land protection, life-cycle housing, natural resource protection or other amenities. c) Village Mixed Use This land use category recognizes the significant contribution of the existing village center to the overall character of the community. New commercial, retail, and residential activity will be encouraged in order to develop and redevelop areas in the village center while maintaining the historic nature of the village center. Primary land uses in the Village Mixed Use area include commercial, office, retail, public and private institutions, civic buildings, light industrial, and parks and recreation. Residential uses, including single family homes, townhouses and multi-family buildings, will be a secondary use. Multi-family buildings in the village center will achieve the goal of diversifying the housing options for younger families, seniors, and singles. Future lot sizes will be similar to the existing mix of lot sizes in the village center. In order to support these relatively small lot sizes, community sewer systems are anticipated. This designation corresponds with the Village Mixed Use AVillage - Historic Core and and B and Village Center Districts, and the Planned Industrial District in the current zoning ordinance. The zoning ordinance requires a minimum lot size of 2.5 acres per unit. Higher densities up to one five units per acre may be permitted through Conservation Design or Cluster Development, Conditional Use Permits, or Planned Unit Developments on a case by case basis, depending on the land use intensity and the ability of the site and/or system to manage wastewater. Per the Scandia 2040 Comprehensive Plan Land Use Prepared by: Bolton & Menk, Inc. Page 27 City Development Unified Development Code Chapter 2, Section 6, 153.200.050 Subd. 4, density bonuses up to 75% will be considered for multi-unit developments if providing community value through agricultural land protection, life-cycle housing or natural resource protection or other amenities. This is consistent with existing multi- unit developments like the Oakhill Cottages. While exact proportions of uses will be dependent on development, it is anticipated the Village Mixed Use District will have roughly 60 percent commercial/office/retail uses and 40 percent residential uses. d) Village Neighborhood The Village Neighborhood area is a planned extension of the existing Village Center, located adjacent to and north and west of the Village Center. This land use category designates a growth area surrounding the village and is intended to support single and multi-family residential uses on lot sizes reflective of the existing village lot sizes. This corresponds with the Village Neighborhood District in the current zoning ordinance. The primary land use for the Village Neighborhood area will be small-lot, single- family residential uses. Public and private institutions, civic buildings, and parks and recreation uses will also be allowed. Townhomes and multi-family units will be allowed as an incentive for providing community value through agricultural land protection, life-cycle housing, or natural resource protection. New development in the Village Neighborhood District will be at a density of 4 units per 40 acres in the same Quarter-Quarter Section. A community sewer system may be necessary in order to allow for lot sizes similar to existing village lots. By concentrating development in the Village Neighborhood area, the City of Scandia hopes to protect agricultural and natural resource areas from development pressure. The zoning ordinance requires a minimum lot size of 12.5 acres per unit. Higher densities up to one unit per 1.5 acre may be permitted through Cluster Development or Conservation Design practices, Conditional Use Permits, or Planned Unit Developments on a case by case basis, depending on the land use intensity and the ability of the site and/or system to manage wastewater. Per the City Development Code Chapter 2, Section 6, density bonuses up to 75% will be considered for multi-unit developments if providing community value through agricultural land protection, life-cycle housing or natural resource protection or other amenities. This is consistent with existing multi-unit developments like the Oakhill Cottages. St. Croix River District The St. Croix River District recognizes the unique historical and natural resource aspects of the floodplain and bluffs of the shoreland area of the St. Croix River. This area includes historic crossroad and seasonal home communities, parkland, river access, and areas protected under scenic easements held by the National Park Service. The mapped area east of State Highway 95 corresponds to land areas protected under federal wild and scenic river designation. The future of this area includes limited residential development that protects the natural and scenic shoreland areas, and public and private protected lands. This corresponds with the Lower St. Croix River Corridor Overlay District in the current zoning ordinance. New development in the St. Croix River District will be at a density of 4 units per 40 acres. Smaller lots may be permitted through the use of open space conservation subdivisions but may not exceed maximum densities. Viewsheds should be considered and protected in the siting of structures and driveways. Scandia 2040 Comprehensive Plan Land Use Prepared by: Bolton & Menk, Inc. Page 28 e) Rural Commercial The Rural Commercial future land use area is intended to support commercial development in places of historic commercial activity. These areas are the only commercial areas anticipated outside of the Village Center and are intended to complement Village Center commercial uses. Rural Commercial areas are designated at the historic commercial nodes of the Big Marine Store, Copas/Abrahamson Nurseries, and the intersection of Highways 95 and 97. Commercial uses reflecting the historic nature of the community and compatible with the surrounding rural character will be allowed on lot sizes of at least 2 acres. Because this future land use area builds upon historic character, commercial building design standards shall reflect the historic nature of the community. This corresponds with the Rural Commercial District in the current zoning ordinance. f) Rural Mixed Use The Rural Mixed Use area is located to the west of Big Marine Lake. This is a new land use category and is intended to allow for single-family residential development connected to the Big Marine Store rural commercial area. Single family residential would be at a maximum density of 4 units per 40 acres. Some civic buildings, small commercial, and parks and recreation uses will also be allowed. It is anticipated the Rural Mixed Use District will have roughly 85 percent residential uses and 15 percent commercial or civic uses. Improvements to the existing community system are necessary to permit higher density in this area. Until that occurs, new development will be limited in this area. Section 5 of the City of Scandia’s Subdivision Ordinance includes lack of adequate sewage treatment systems as a condition of premature development within the City, which shall not be approved by City Council. Until the sewer is improved, the current General Rural Rural Residential General zoning district will remain in place, preserving land at residential densities of 4 units/40 acres to be consistent with the Diversified Rural community designation. Upgrades and improvements to the community system will occur alongside new development in the area. The presence of wetlands and the additional regulations of the shoreland overlay district, which covers many parcels in this area of the City, will likely be constraining factors for both new development and sewer improvements. However, it is the intention of the City of Scandia to encourage development and higher densities in this area once improvements to the community sewer are made. To that end, the City will work to amend the zoning ordinance and comprehensive plan as needed to implement higher densities and land use once the infrastructure is sufficient. g) St. Croix River District The St. Croix River District recognizes the unique historical and natural resource aspects of the floodplain and bluffs of the shoreland area of the St. Croix River. This area includes historic crossroad and seasonal home communities, parkland, river access, and areas protected under scenic easements held by the National Park Service. The mapped area east of State Highway 95 corresponds to land areas protected under federal wild and scenic river designation. The future of this area includes limited residential development that protects the natural and scenic shoreland areas, and public Scandia 2040 Comprehensive Plan Land Use Prepared by: Bolton & Menk, Inc. Page 29 and private protected lands. This corresponds with the Lower St. Croix River Corridor Overlay District in the current zoning ordinance. New development in the St. Croix River District will be at a density of 4 units per 40 acres. Smaller lots may be permitted through the use of open space conservation subdivisions but may not exceed maximum densities. Viewsheds should be considered and protected in the siting of structures and driveways. h) Recreation Area Protected The Recreation Area Protected land use category includes publicly owned lands permanently protected from development. This designation recognizes that these areas will continue to be used for recreation or open space only and not developed. If recreation facilities are developed within these areas, priority natural resource areas shall be protected. In addition, priority natural resources should be restored and enhanced wherever possible within protected recreation areas. This designation corresponds with the Agricultural Preserves, Agricultural Core Area, and General Rural Rural Residential General Districts in the zoning ordinance. i) Mining The Mining area includes areas in the City of Scandia with active, permitted mining operations. Mining activity is anticipated to continue in these areas in the future. Mining uses must comply with local and state extractive use regulations and reclamation shall restore the topography and natural resources of the site to a level such that the land is suitable for the planned future land uses such as agriculture or residential. This corresponds with the Aggregate Mining Overlay District in the current zoning ordinance. The following overlay district will also guide land uses in specific, sensitive areas: • Agriculture Preserves Overlay District (AP) The Agricultural Preserves Overlay plans for the continuation of the Agricultural Preserves Program is Scandia. This overlay is intended to encourage the continuation of agriculture through ensuring the availability of the Program to qualifying agricultural landowners. The Agricultural Preserves Overlay lies over the primary agricultural future land use area, the Agricultural Core Area. The Agricultural Preserves Overlay allows individual property owners within Scandia to continue to participate in the Agricultural Preserves Program. This voluntary program for landowners within the seven-county metropolitan area allows individuals to place their properties under a restrictive covenant committing their property to agricultural use in exchange for certain benefits. These benefits include a special tax rate calculated based on agricultural value rather than market value, a property tax credit, protection of normal farm practices, and protection against special assessments for public improvement projects. While the underlying zoning district (Agricultural Core Area) allows four dwellings per 40 acres, parcels enrolled in the Agricultural Preserves Program and located within the Agricultural Preserves Overlay shall be allowed only 1 unit per 40 acres per program requirements. Scandia 2040 Comprehensive Plan Land Use Prepared by: Bolton & Menk, Inc. Page 30 Additional details on the corresponding zoning districts are included on Table X-A in the Implementation chapter. 1. Density Calculations Based on the above future land use plan and land use calculations, residential and commercial land use requirements have been calculated to help Scandia plan for and meet Metropolitan Council projections for population, households, and employment. Residential calculations are detailed in Table II-M and commercial calculations are detailed in Table II-N. Residential To meet forecasted 2040 population and household projections, the City of Scandia will need to add 582 housing units by 2040. These calculations show the number of acres needed to accommodate all needed housing units in each zoning district. Residential development is anticipated to take place in all residential zoning districts in an orderly manner consistent with the staging plan, discussed below. These calculations do not include any density bonuses which may be allowed per the Zoning Ordinance. Actual acreage needed to accommodate future households and their locations will be influenced by market forces. Table II-M – Residential Density Increase Calculations Future Land Use Zoning Districts Permitting Residential Use Density (Units/Acre) Desired Distribution Number of Households Acres Needed Current (2015) Developable Acres Agricultural Core 4/40 5% 30 300 5,688 General Rural 4/40 21% 122 1,220 6,121 St. Croix River Corridor 4/40 5% 29 290 296 Rural Mixed Use 4/40 5% 7 73 269 Village Neighborhood 1/2.5 4/40 60.4 7.8% 352 44 440 880 1,080 1/1.5 55% 308 462 Village Mixed Use 1/2.5 5/1 3.4% 20 50 4 125 Total 100% 560 2,813 2,789 13,889 Commercial To meet forecasted 2040 employment projections, the City of Scandia will need to add 190 jobs by 2040. These calculations show the number of acres needed to accommodate all needed new jobs in each zoning district. Based on guided land use and available developable acres, Scandia has sufficient available vacant land to meet employment projections based on development in the Village Mixed Use (commercial/industrial) Rural Commercial, and Rural Mixed Use (both commercial) districts. Actual acreage needed to accommodate jobs will greatly depend on the types of businesses starting or expanding in Scandia. These calculations also do not include remote telecommuting, home occupations, or permitted employment opportunities in agricultural zoning districts, all of which will influence the number of acres needed to accommodate employment in Scandia. Table II-N – Commercial/Industrial Increased Density Calculations Scandia 2040 Comprehensive Plan Land Use Prepared by: Bolton & Menk, Inc. Page 31 Zoning Districts Density Range (Jobs/Acre) Desired Distribution Number of Jobs Minimum Acres Maximum Acres Current (2015) Developable Acres Minimum Maximum Village Mixed Use 14 62.4 60% 114 1.8 8.1 125 Rural Commercial 11.4 50.7 30% 57 1.1 5 46 Rural Mixed Use 11.4 50.7 10% 19 0.4 1.7 269 Total - - 100% 190 3.3 14.8 440 2. Staged Development or Redevelopment The goal of a Staging Plan is to manage growth and guide the orderly and cost-effective provision of infrastructure at a rate that is consistent with forecasted growth, at the same time responding appropriately to market conditions. Table II-O identifies the staging of future growth in Scandia. This table indicates the anticipated timing and sequence of growth. It identifies the developable acres, number of housing units and jobs that may be developed in each 10-year planning period. The table is not intended to limit or to compel growth in any specific area within the planning period. Rather, it is an estimation of where growth may logically occur. A staging plan cannot force development to occur but can be used as a tool to guide development appropriately. In many cases, cities choose to stage and time growth in an orderly and contiguous manner; however, there is nothing about adopting a staged growth plan that forces any private property owner to sell or develop their land before they wish to do so. The City of Scandia will make development decisions based on existing and development of new infrastructure, land capacity and market conditions. Table II-O – Staging of Future Land Use Units/Jobs/Acres Outside Urban Service Area Average Density Range Housing Existing Developable (2015) 2020 2030 2040 Residential Units/Acre Acres Units Acres Units Acres Units Acres Agricultural Core 0.1 5,688 10 100 10 100 10 100 General Rural 0.1 6,121 41 410 40 400 41 410 Rural Mixed Use 0.1 269 0 0 0 0 7 73 St. Croix River District 0.1 296 9 90 10 100 10 100 Village Mixed Use 0.4 125 5 13 7 18 8 20 Village Neighborhood 0.4 1,080 120 300 140 350 92 230 Average Density for New Development 560 units/2,789 814 = 0.20 units/acre Non-Residential Estimated Employment/Acre Developable Acres Jobs Acres Jobs Acres Jobs Acres Village Mixed Use 14 62.4 125 53 3.8 50 3.6 11 0.8 Rural Commercial 11.4 50.7 46 27 2.4 20 1.8 10 0.9 Rural Mixed Use 11.4 50.7 269 0 0 0 0 19 1.67 Scandia 2040 Comprehensive Plan Land Use Prepared by: Bolton & Menk, Inc. Page 32 Average Density for New Development 190 jobs/14.8 acres = 12.8 jobs/acre One of the main desires of this comprehensive plan is to preserve and augment the community character and history in Scandia. To support the Village Center, the social and economic heart of the city, infill development will be encouraged in vacant or underutilized lots. This will help encourage a vibrant Village Center and surrounding residential neighborhoods while utilizing existing infrastructure, guiding development and redevelopment in an orderly manner. The expansion of Village Neighborhoods and Village Mixed Use the Village zoning districts will occur as market conditions allow. The implementation of the Rural Mixed Use district west of Big Marine Lake will be contingent upon infrastructure repairs or upgrades. Most homes in this area are currently served by community sewer, which is aging and to the point of needing repairs. The City of Scandia is currently assessing options to best provide wastewater services to this portion of the city, discussed more in Chapter VI. Development in this area of the city should be aligned with future wastewater plans and investments. Scandia 2040 Comprehensive Plan Housing Prepared by: Bolton & Menk, Inc. Page 53 Projected Housing Needs The City of Scandia is anticipated to see modest population and household growth by 2040. Exact housing needs and demand for new housing development will be influenced by the actual population growth and average household size. The amount of land needed to accommodate new housing units will be influenced by several factors, including the desire for accessory dwelling units and the location of new units. Most of the city’s housing growth is anticipated to take place in the Village Neighborhood designation, which permits higher density residential development than General Rural or Agricultural. Accessory dwelling units on existing lots can also accommodate the city’s projected population growth without greatly increasing the demand for developable land. Figure VI-G – Household Projections Appendix A details the housing needs and gaps identified by respondents to the 2017 Community Survey. Residential development was noted as one of the top priorities for the city for the next 20 years. Most survey respondents expressed a desire for mid-range, single-family homes on larger lots. When asked to identify gaps, the most common response was about the lack of senior or assisted living (45% of survey responses). As noted in Appendix B, focus group participants also expressed a desire for housing north of Highway 97, north/west of the current village center and around Big Marine Lake. There was interest in senior housing options, which ranged from care facilities to varying house sizes (smaller single family, townhomes) and lot configurations, such as accessory dwelling units. To accommodate projected housing needs, the Future Land Use plan expands the Village Neighborhood designation north and west, a reflection of both public comments and orderly, contiguous residential expansion. This designation accommodates smaller homes and smaller lot sizes, blending into the historical character of the Village Center. The zoning ordinance also includes density bonuses for the development of life-cycle housing, where the housing units are designated for residents age 55 or older or are affordable to households with incomes less than 120% of AMI. Large lot, single family homes are the primary housing type permitted in General Rural Rural Residential General, Agricultural Core, and the St. Croix River zoning districts to preserve the city’s rural character. 408 851 1,060 1,294 1,498 1,518 1,700 1,910 2,100 1970 1980 1990 2000 2010 2020 2030 2040 Household Projections in Scandia Number of Households Scandia 2040 Comprehensive Plan Housing Prepared by: Bolton & Menk, Inc. Page 54 Affordable Housing Allocation The Affordable Housing Allocation reflects the region’s forecasted population that will need affordable housing. According to the Metropolitan Council’s affordable housing allocation, Scandia’s share of affordable housing need is zero units, noted in Table VI-E. Table VI-E – Affordable Housing Allocation At or below 30 AMI 0 From 31 to 50 AMI 0 From 51 to 80 AMI 0 Total Number 0 While the City of Scandia does not have an affordable housing allocation, residents have expressed a concern about the lack of affordable housing in the city. High housing costs were identified in the Community Survey as one of the top three challenges facing Scandia. About 37% of existing housing units are affordable to households with incomes at or below 80% AMI. As mentioned in the previous section, Scandia offers a density bonus for the development of affordable housing (up to 120% AMI) in the Village Neighborhood zoning district. The City will work with developers and Washington County to inform residents of available programs and identify opportunities for implementation. Housing Implementation Plan There are a variety tools that aid the development of affordable housing. Table VI-F lists several of the tools available to the City of Scandia. The City of Scandia will consider the following tools on a case-by-case basis, as development occurs. Scandia 2040 Comprehensive Plan Housing Prepared by: Bolton & Menk, Inc. Page 55 Table VI-F – Housing Implementation Housing Goal/Need Available Tool Opportunity and Sequence of Use Potential Partners Multi- Generational Community Living Start-Up Loan Program Assist first-time homebuyers with financing a home purchase and down payment assistance through a dedicated loan program Minnesota Housing Home Improvement Loans Assist homeowners in financing home maintenance projects to accommodating a physical disability Washington County CDA, Minnesota Housing ADU Ordinance The City will continue to support ordinances permitting the construction of accessory dwelling units or guest homes in specific zoning districts Planning Commission and City Council Planned Unit Development (PUD) The City would consider a PUD application for senior housing in the Village Mixed Use district. Planning Commission and City Council Program or Framework The City will work with groups and stakeholders to develop guiding principles, frameworks, and action plans to consider and incorporate the needs of older residents into development decisions Senior advocacy groups or networks, residents Maintaining Existing Housing Units Home Improvement Loans Assist homeowners in financing home maintenance projects like roof repair, plumbing and electrical work, accommodating a physical disability, or select energy efficiency improvement projects Washington County CDA, Minnesota Housing Subsurface Sewage Treatment System Repair Grant/Loan Assist homeowners with noncompliant subsurface sewage treatment systems Washington County New Housing Construction Tax Increment Financing The City would consider the creation of a TIF district to encourage development of new housing units, redevelopment and/or infrastructure improvements affordable at or below 80% AMI Washington County CDA Site Assembly The City would consider assembling a site for senior housing. This may include acquiring and holding land as well as sub-allocating such monies to a qualified developer approved by the City Council. City Council/Developer Housing Bonds The City would consider housing bonds to support the new construction of affordable and/or senior housing affordable at or below 80% AMI. Washington County CDA Tax Abatement The City would consider tax abatement to support the new construction of affordable Washington County CDA Scandia 2040 Comprehensive Plan Housing Prepared by: Bolton & Menk, Inc. Page 56 Table VI-F – Housing Implementation and/or senior housing affordable at or below 80% AMI. MN Housing Consolidated RFP The City would consider supporting an application to support the new construction of senior housing. Washington County CDA, Minnesota Housing GROW Fund Provide gap financing for new or redevelopment projects affordable to owner or renter households at or below 60% AMI Washington County CDA Maintaining Homeownership Home Buyer Education The City will consider partnering with the CDA and other agencies to offer resources to homeowners pre- and post-purchase. Washington County CDA Homeowner Counseling The City will consider partnering with the CDA and other agencies to offer counseling and foreclosure prevention to homeowners. Washington County CDA Community Land Trust The City will consider supporting the addition of appropriate single-family homes into the Two Rivers Community Land Trust to increase affordable housing options. Washington County CDA Other City Ordinances The City will review zoning and subdivision ordinances to identify the potential opportunities for cluster development and flexible development that will encourage affordable housing. Planning Commission and City Council The City will review its zoning and subdivision ordinances to identify any regulations that inhibit the housing priorities in this document. This effort is slated for completion by 2020. Local Fair Housing Policy The City will consider developing a Fair Housing Policy. Scandia 2040 Comprehensive Plan Implementation Prepared by: Bolton & Menk, Inc. Page 121 X. IMPLEMENTATION Implementation Plan The Comprehensive plan creates a vision for the City of Scandia and guides land use and infrastructure improvements so that the City can meet the needs of the community in the future. The vision of the plan can only be realized if the plan is used. Tools to implement the plan will vary in that some will be reactive, such as zoning and subdivision ordinances that guide private developments, and others will be proactive, such as the City’s Capital Improvement Program (CIP) for undertaking public improvement projects. 1. Official Controls To achieve the goals and objectives of this Comprehensive Plan, the City of Scandia has adopted a Development Code to establish regulations for zoning, subdivision of land, and shoreland and floodplain areas. The Development Code was originally adopted in November of 2010, with ongoing amendments as needed. Scandia’s Development Code incorporates all land development regulations into a single code. Zoning City zoning codes regulate land use to promote the health, safety, order, convenience, and general welfare of all citizens. They regulate location, size, use and height of buildings, the arrangement of buildings on lots, and the density of population within the City. The City’s zoning districts effectively guide development in Scandia. The City of Scandia is divided into eight zoning districts, detailed below and shown in Figure X-A. There are permitted and accessory uses in most districts, as well as the other allowed uses under conditional use permit, interim use permits, or administrative permits. Table X-A provides a high-level summary of each zoning district, and Table X-B provides a summary of each overlay district. To ensure compliance with this 2040 Comprehensive Plan, the following zoning ordinance changes will need to be implemented: • Update zoning map based on future land use plan • Reconcile inconsistencies between current zoning ordinance and intended future land uses Scandia 2040 Comprehensive Plan Implementation Prepared by: Bolton & Menk, Inc. Page 122 Figure X-A – Current Zoning Map Scandia 2040 Comprehensive Plan Implementation Prepared by: Bolton & Menk, Inc. Page 123 Table X-A – Zoning Districts Zo n i n g C l a s s i f i c a t i o n s Agricultural Preserves District (AP) General Description This district plans for the continuation of the Agricultural Preserves Program in Scandia. Regulations fulfill standards to make land eligible for the Metropolitan Agricultural Preserves according to Minnesota Statute 473H, as amended, to remain in long-term agricultural production. Primary and Secondary Uses Primary uses: • Agricultural production • Agricultural businesses and services • Single family residential • Essential Services • Feedlots and livestock operations • Parks and recreation facilities Secondary land uses: • Accessory structures • Limited professional services General farming services Density /Intensity 1 unit per 40 acres. Maximum lot coverage is 25%. Special Natural Resource Standards & Design Standards • Continued viability of agricultural uses considered in siting of structures and drives • Character Area Standards in Section 153.400.040 Subd. 1 (B) I. Character Area: Agricultural Districts (A-P and AG-C) Scandia 2040 Comprehensive Plan Implementation Prepared by: Bolton & Menk, Inc. Page 124 Table X-A – Zoning Districts Agricultural Core Area (AG-C) General Description The AG-C District is established to protect and preserve land for long-term agricultural production. Residential development compatible with agriculture is permitted. Primary and Secondary Uses Primary uses: • Agricultural production • Agricultural businesses and services • Single family residential • Essential Services • Feedlots and livestock operations • Parks and recreation facilities Secondary land uses: • Accessory structures • Limited professional services • General farming services Density/Intensity 4 buildable lots per 40 acres. Lots shall be 2 to 5 acres in size or 20 acres or greater. Maximum lot coverage is 25%. An open space conservation subdivision providing the minimum required open space shall receive a 25% density bonus. The number of additional bonus lots allowed is directly tied to the quantity and quality of preservation and protection afforded natural landscapes, agricultural land, open space, and cultural features. The maximum bonus permitted is 75%. Special Natural Resource Standards & Design Standards • Continued viability of agricultural uses considered in siting of structures and drives • Open space conservation subdivisions are encouraged • Bonus density incentives may be offered in open space conservation subdivisions only if agricultural protection is the focal point of the subdivision design • Character Area Standards in Section 153.400.040 Subd. 1 (B) I. Character Area: Agricultural Districts (A-P and AG-C) Scandia 2040 Comprehensive Plan Implementation Prepared by: Bolton & Menk, Inc. Page 125 Table X-A – Zoning Districts General Rural Rural Residential General District (RR- G) General Description Lands zoned Rural Residential General(RR-G)are established to provide for principal residential use with estate or large-lot development patterns. The RR-G District includes lot or parcel configurations that are generally unplatted, including mostly non-riparian land. The RR-G District areas are guided General Rural in the Comprehensive Plan. Primary and Secondary Uses Primary uses: • Agricultural production • Agricultural businesses and services • Single family residential • Essential Services • Feedlots and livestock operations • Parks and recreation facilities Secondary land uses: • Accessory structures • Limited professional services • General farming services Density/Intensity 4 buildable lots per 40 acres; minimum lot size of 2 acres. Maximum lot coverage is 25%. An open space conservation subdivision providing the minimum required open space shall receive a 25% density bonus. The number of additional bonus lots allowed is directly tied to the quantity and quality of preservation and protection afforded natural landscapes, agricultural land, open space, and cultural features. The maximum bonus permitted is 75%. Special Natural Resource Standards & Design Standards • Continued viability of agricultural uses considered in siting of structures and drives • Open space conservation subdivisions are encouraged for subdivisions • Character Area Standards in Section 153.400.040 Subd. 1 (B) II. Character Area: Rural Residential Districts (RR-G and RR-N) Scandia 2040 Comprehensive Plan Implementation Prepared by: Bolton & Menk, Inc. Page 126 Table X-A – Zoning Districts Rural Residential Neighborhood District (RR- N) General Description Lands zoned RR-N are the parcels adjoining, abutting, or a portion of which are within 1,000 feet of a lake with a public waters designation that were historically platted or divided into smaller lots for seasonal use. The use of these lots has generally transitioned to permanent year-round use with predominantly principal residential uses. Most parcels and lots in the RR-N District are at least 50% contained within the Shoreland Management Overlay (SM-O) District. In addition to the standards identified in this Section, the lots or parcels are subject to the regulations contained within Chapters 155 of the City Code and the Washington County St. Croix River District standards which are incorporated by reference herein. Land zoned RR-N are guided Agricultural Core and General Rural in the Comprehensive Plan. Primary and Secondary Uses Primary uses: • Agricultural production • Single family residential • Essential Services • Parks and recreation facilities Secondary land uses: • Accessory structures • Limited professional services Density/Intensity 4 buildable lots per 40 acres; minimum lot size of 2 acres. Maximum lot coverage is 25%. Special Natural Resource Standards & Design Standards • Continued viability of agricultural uses considered in siting of structures and drives • Open space conservation subdivisions are encouraged for subdivisions • Character Area Standards in Section 153.400.040 Subd. 1 (B) II. Character Area: Rural Residential Districts (RR-G and RR-N) Scandia 2040 Comprehensive Plan Implementation Prepared by: Bolton & Menk, Inc. Page 127 Table X-A – Zoning Districts Village Mixed Use A Village – Historic Core District (VMU A V- HC) General Description The VMU A V-HC District is established to sustain the historic village center by preserving and protecting the long-term viability of historic properties and structures, and by allowing a mixture of mutually supportive land uses. The mixture of commercial, office, institutional, recreational, and residential land uses are made compatible through the enforcement of design guidelines. Primary and Secondary Uses Primary uses: • Commercial, office, retail • Public and private institutions • Civic buildings • Light industrial • Parks and recreation Secondary land uses: • Accessory Structures • Recreation facilities and equipment Density /Intensity 2,500 square feet minimum lot size 5 dwelling units per acre. No new subdivisions of land permitted. Maximum lot coverage of 80%. Maximum building height is 45 feet. Special Natural Resource Standards & Design Standards • In the core of the Village, buildings shall be of a size and have setbacks that reflect the “downtown” character • Scandia Architectural Design Guidelines and Unified Development Code Character Area Standards should be used as an example to protect the historic elements and further development should match these styles • Character Area Standards in Section 153.400.040 Subd. 1 (B) III. Character Area: Village Districts (V-N, V-C and V-HC) Scandia 2040 Comprehensive Plan Implementation Prepared by: Bolton & Menk, Inc. Page 128 Table X-A – Zoning Districts Village Mixed Use B Center District (VMU B V-C) General Description The VMU B V-C District is established to provide a growth area around the Village Center. The District provides for a mixture of commercial, office, institutional, recreational, and residential land uses. The District provides an area for larger scale businesses, for businesses that benefit from visibility from MN Hwy 97, and for business and mixed-use development that utilize on-site wastewater treatment systems. Primary and Secondary Uses Primary uses: • Department, discount, and warehouse stores • Garden supply stores • Laundromats • Sports and fitness clubs, less than 4,000 square feet in area Secondary land uses: • Accessory Structures • Recreation facilities and equipment Density /Intensity 5 dwelling units per acre. 2.5 acres minimum lot size, 1 acre minimum buildable area. Maximum lot coverage 65%. Maximum building height 45 feet Special Natural Resource Standards & Design Standards Character Area Standards in Section 153.400.040 Subd. 1 (B) III. Character Area: Village Districts (V-N, V-C and V-HC) Scandia 2040 Comprehensive Plan Implementation Prepared by: Bolton & Menk, Inc. Page 129 Table X-A – Zoning Districts Village Neighborhood District (V-N) General Description The V-N District is established to designate growth areas surrounding the village center, to support primarily single-family residential uses on lot sizes reflective of the existing village lot sizes. Primary and Secondary Uses Primary uses: • Single family residential • Public parks and recreation • Agriculture • Essential Services Secondary land uses: • Accessory structures • Limited professional services Recreation facilities and equipment Density/Intensity Single family: 4 dwelling unit per 40 acres in the same Quarter-Quarter Section.1 dwelling unit per 2.5 acres. 1 dwelling unit per 1.5 acres (where applicable). Multifamily (with conditional use permit): 1 dwelling unit per 1.5 acres. Bonus densities up to 1 dwelling unit per acre may be earned as an incentive for providing life-cycle housing (age 55+). utilized if if public water and sewer is available and the parcel or lot is hooked up to municipal service. Lots sizes in the Goose Lake shoreland area shall remain consistent with those allowed under the current shoreland ordinance. Special Natural Resource Standards & Design Standards • Design standards shall ensure that new development is visually compatible with existing village development patterns. • Street and sidewalk standards ensure new development is well-connected to the Village Center • Character Area Standards in Section 153.400.040 Subd. 1 (B) III. Character Area: Village Districts (V-N, V-C and V-HC) Scandia 2040 Comprehensive Plan Implementation Prepared by: Bolton & Menk, Inc. Page 130 Table X-A – Zoning Districts Industrial Park District (I-P) General Description The IP District is established to allow for light industrial businesses. IP District areas are designated Village Mixed Use in the Comprehensive Plan. Industrial park uses include a variety of light manufacturing, fabrication, assembly, warehouse, wholesaling or storage businesses that are non- threatening to the environment. The IP District does not abut major roadways, and property access is via a local street which does not also serve residential districts. Primary and Secondary Uses Permitted uses: • Building Supplies • Contractor Operations • Light Manufacturing and Assembly • Essential services • Government Buildings • Recreational Uses Secondary uses: • Accessory Structures • Off-Street Parking • Temporary Produce Stands Density /Intensity 2.05 acres minimum lot size, 1 acre minimum buildable area. Maximum lot coverage 65%. Maximum building height 45 feet Special Natural Resource Standards & Design Standards Character Area Standards in Section 153.400.040 Subd. 1 (B) IV. Character Area: Business Districts (R-C and I-P) Scandia 2040 Comprehensive Plan Implementation Prepared by: Bolton & Menk, Inc. Page 131 Table X-A – Zoning Districts Rural Commercial District (R-C) General Description Lands zoned Rural Commercial are intended to support commercial development of rural areas in the community that have historically been used for some type of business use. R-C zoned land is guided Rural Commercial in the Comprehensive Plan. Primary and Secondary Uses Permitted uses: • Agriculture • Banks, Credit Unions, and other financial institutions • Bed and Breakfast Inns • Offices • Motor Vehicle Service Stations • Restaurants Secondary uses: • Accessory Structures • Off-Street Parking Density /Intensity 2.0 acres minimum lot size, 1 acre minimum buildable area. Maximum lot coverage 65%. Maximum building height 45 feet Special Natural Resource Standards & Design Standards Character Area Standards in Section 153.400.040 Subd. 1 (B) IV. Character Area: Business Districts (R-C and I-P) Prepared by Big Marine Park Reserve Big Marine Lake William O'Brien State Park G o o s e L a k e Bone L a k e ?øA@ ?öA@ S÷ SÚ Sd S« S° Wisconsin Chisago County Franconia Township Hugo Forest Lake Wyoming Chisago Lake Township May Township May Township Marine on Saint Croix Chisago City Scandia Comprehensive Plan Scandia, Minnesota April 2019, Updated August 2023 Proposed Future Land Use Legend Agricultural Core General Rural Mining St Croix River District Recreation Area Protected Rural Commercial Rural Mixed Use Village Mixed Use Village Neighborhood Open Water Railway 0 ½ Miles Source: Washington County, Met. Council, MnGeo, MnDOT, Esri !I Future Land Use City Limits County Boundary PARCELS Aggregate Resources Agricultural Preserves Highway