07. Density and Subdivision Design Standards
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Date of Meeting: May 7, 2025
To: Honorable Mayor and Members of the City Council
From: T.J. Hofer, Consultant City Planner
Re: Density and UDC Amendment for Major Subdivision Design Standards
City staff have been working on an amendment to the Unified Development Code to establish
standards for major subdivisions to address concerns identified as part of the review of a plat.
Staff now has a greater understanding of how the Sector Representatives of the Metropolitan
Council review density allowances for the City, the options that exist for flexibility, and options
for changing density in the city. Staff are recommending the City Council review density before
addressing the subdivision design standard.
BACKGROUND
At the February 4, 2025, meeting of the Planning Commission staff presented language to amend
the Unified Development Code (UDC) to add standards for major subdivisions. Those standards
would require buffers from streets and existing dwellings and establish standards for streets,
wastewater treatment, stormwater management, and landscaping. The Planning Commission
discussed the ordinance and held a public hearing where no comments were made. The Planning
Commission directed staff to review the buffers, how the other standards related to the buffers,
and asked for additional examples of development patterns.
In reviewing the ordinance staff identified that some aspects of the ordinance may be more time-
sensitive than others. Staff prepared a separate ordinance that includes standards for streets and
stormwater management. The Planning Commission wished to continue the discussion on
subdivision design and recommended the standards that staff identified as more time sensitive.
The City Council reviewed the recommended standards for streets and stormwater at the March
18, 2025, meeting and identified concerns regarding the standards. The Council tabled the issue
and asked staff to review the proposed amendment. At this time, staf f believe it would be prudent
for the City Council to discuss density within the city before addressing design standards.
City staff have been working to understand the density requirements and options for
development as prescribed by the Metropolitan Council. Through several conversations and
emails with Sector Representatives from the Metropolitan Council, staff now feel that they have
a clear understanding of how the Metropolitan Council applies density and what options exist for
the city regarding density. In reviewing this information, staff believe that a multiple part
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discussion is warranted to establish a clear understanding of what is allowed in terms of density
throughout the City of Scandia.
1. Review of Diversified Rural Community Designation, Flexible Design Guidelines, and
Open Space Planned Unit Developments
2. Review of Rural Center Community Designation, Village District Density Options, and
Potential Amendments
3. Discussion Regarding Potential Amendments to Comprehensive Plan and Unified
Development Code
REVIEW OF DIVERSIFIED RURAL COMMUNITY DESIGNATION
The Diversified Rural Community Designation (Diversified Rural) applies to the majority of the
City of Scandia. The Metropolitan Council state in Thrive MSP 2040: Land Use Policy by
Community Designation that land designated as Diversified Rural is (emphasis added):
Diversified Rural communities are home to a variety of farm and nonfarm land uses
including very large-lot residential, clustered housing, hobby farms and agricultural
uses. Located adjacent to the Emerging Suburban Edge of the Urban Service Area,
Diversified Rural designation protects rural land for rural lifestyles today and potential
urbanized levels of development sometime after 2040. Large portions of communities in
the Diversified Rural area also contain prime agricultural soils, located primarily in
Scott and Washington Counties.
There is a portion of the region’s population that is interested in rural and small town
living. For communities in the Diversified Rural area, the Council supports the
clustering of homes to meet that demand, designed in a manner that protects high -
quality and locally prioritized natural areas and open spaces, and also preserves lands
in areas identified for potential future post-2040 urban development. In August 2008,
the Council adopted Flexible Residential Development Ordinance Guidelines for the
Diversified Rural Area that describe the factors that communities should take into
account if they are considering allowing residential development at densities greater
than 4 units per 40 acres. These guidelines include the following points:
1. Include the need to reserve land resources for efficient future urban
development as part of the ordinance purpose.
2. Identify the land characteristics required to support future urbanization.
3. Allow no more than 25% of the developable land in a project to be developed,
reserving larger future urbanization parcels.
4. Protect future urbanization parcels with temporary development agreements,
easements, or deed restrictions.
5. Provide for the rezoning of the future urbanization parcels to a residential
zoning classification at densities consistent with Council policy at such time that
urban services are available.
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6. Encourage the use of community wastewater treatment systems to serve the
temporary cluster.
FLEXIBLE DESIGN GUIDELINES
The Flexible Residential Development
Ordinance Guidelines (FRDOG) were
adopted in 2008, and the Metropolitan
Council has created another document
as part of the Local Planning
Handbook that provides additional
information on the FRODG. The
FRDOG are guidelines on how local
municipalities can adopt ordinances
that guide development in a way that
preserves open area for future urban
development. In both the above
descriptions and within the FRDOG
there are references to allowing
densities greater than 4 units per 40 acres (4/40), which is the maximum density for Diversified
Rural. The language regarding this however is misleading and does not allow for a community to
exceed the limit of 4/40, it merely allows for the density to be concentrated into a smaller area
while preserving a larger area.
The FRODG states that the “bonus density” can be allowed when up to 75% of a development
area is preserved for future urbanization (along with other requirements). This is most easily
understood in context. If a 100-acre parcel is proposed to be developed, with traditional
subdivision practices the parcel would be split into 10 lots, each of which are 10 acres (less
ROW, buffers, easements, etc.). This would meet the requirement of 4/40.
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With the FRODG the “bonus density” is allowing for those units to be clustered into a smaller
area and preserving a larger area, thereby increasing the density within that specific development
area. The gross density of the development remains at 4/40 while the net density where the lots
are located has a net density of 1 unit per 2.5 acres (or 16 units per 40 acres).
The FRDOG does not provide an option for a true bonus density that results in more units than
would be allowed by the Diversifed Rural density maximum.
OPEN SPACE PLANNED UNIT DEVELOPMENTS
The city’s standards for Open Space Planned Unit Developments (OS-PUD) allow for
development similar to what is recommended within the FRDOG; however, the purpose of the
OS-PUD is clearly guided towards natural resource, agricultural land, and historic resources
protection rather than preservation for urbanization. There are potential issues that staff have
identified within the OS-PUD standards.
The standards for the OS-PUD reference a “minimum open space required,” however, there is no
minimum standard established in the code. A minimum amount of open space should be defined.
The standards state that a parcel must be at least 40 acres in the AG-C or RR-G. With the
understanding of the 4/40 gross density needing to be maintained, a 40-acre parcel would not be
able to be granted any bonus density. This standard should be revised to reflect the need for at
least 10 acres for every dwelling unit.
The dimensional standards for the OS-PUD currently state that the density maximum is “Up to 7
DU/40 Acres (If full Density Bonus is granted).” With the application of density based on
quarter-quarter sections, if the intent of the ordinance is to allow for the quarter-quarter section to
exceed four dwelling units and be allowed up to 7/40, any OS-PUD with eight units or more
would need to locate no more than seven units on a single quarter-quarter. This may create issues
on some lots that have development constraints such as wetlands or steep slopes. This also could
create difficulty in tracking quarter-quarter sections and what can be developed. An additional
standard that limits no more than four units in a quarter-quarter section may be required. This
can be seen in the area surrounding the Rolling Acres OS-PUD.
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The city currently does not have a system to limit the development in the quarter -quarter sections
surrounding Rolling Acres or to track the movements of dwelling units allocated to the OS -PUD.
COUNCIL ACTION
No action is required from the City Council at this time.
RECOMMENDATION
Staff will prepare a report for a future meeting to review the Rural Center community
designation, Village District density options, and potential amendments to the comprehensive
plan and UDC.
Attachments
A. Future Land Use Map
B. Zoning Map
C. Thrive 2040 Land Use Policies, Pages 165-167, Metropolitan Council
D. Flexible Residential Development Ordinance Guidelines, Metropolitan Council, August
2008
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E. Flexible Residential Development Factsheet, Metropolitan Council, March 2017
F. City Council "UDC Amendment for Major Subdivision Design Standards – Streets and
Stormwater” Packet, March 18, 2025 (Link Only)
LAND USE POLICIES BY COMMUNITY DESIGNATION
165
DIVERSIFIED RURAL: Protecting land for rural
lifestyles and long-term urbanization
Diversified Rural communities are home to a variety of farm and nonfarm land uses including
very large-lot residential, clustered housing, hobby farms and agricultural uses. Located
adjacent to the Emerging Suburban Edge of the Urban Service Area, Diversified Rural
designation protects rural land for rural lifestyles today and potential urbanized levels of
development sometime after 2040. Large portions of communities in the Diversified Rural area
also contain prime agricultural soils, located primarily in Scott and Washington Counties.
There is a portion of the region’s population that is interested in rural and small town living.
For communities in the Diversified Rural area, the Council supports the clustering of homes
to meet that demand, designed in a manner that protects high-quality and locally prioritized
natural areas and open spaces, and also preserves lands in areas identified for potential future
post-2040 urban development. In August 2008, the Council adopted Flexible Residential
Development Ordinance Guidelines for the Diversified Rural Area that describe the factors that
communities should take into account if they are considering allowing residential development
at densities greater than 4 units per 40 acres. These guidelines include the following points:
1. Include the need to reserve land resources for efficient future urban development as part
of the ordinance purpose.
2. Identify the land characteristics required to support future urbanization.
3. Allow no more than 25% of the developable land in a project to be developed, reserving
larger future urbanization parcels.
4. Protect future urbanization parcels with temporary development agreements, easements,
or deed restrictions.
5. Provide for the rezoning of the future urbanization parcels to a residential zoning
classification at densities consistent with Council policy at such time that urban services
are available.
6. Encourage the use of community wastewater treatment systems to serve the
temporary cluster.
For those communities on the edge of the urbanizing area, designated as part of the Long-
term Wastewater Service Area, a cluster ordinance should be developed and implemented
to provide for interim land uses without precluding the opportunity for future urban-density
development. For areas outside of the Long-term Wastewater Service Area, the Council also
encourages the clustering of homes, particularly when communities are considering densities
greater than 4 units per 40 acres. Similar to the guidelines applicable to areas within the Long-
term Wastewater Service Area, communities should consider implementing conservation
subdivision ordinances or other similar development ordinances to protect natural resources,
preserve open spaces, and address other local priorities.
THRIVE MSP 2040 LAND USE POLICIES BY COMMUNITY DESIGNATION
166
DIVERSIFIED RURAL
Orderly and Efficient Land Use
COUNCIL ROLE
• Work with communities to plan development
patterns that will protect natural resources,
preserve areas where post-2040 growth can be
provided with cost-effective and efficient urban
infrastructure, and support forecasted growth
through 2040 without the provision of regional
urban services.
• Promote development practices and patterns that
protect the integrity of the region’s water supply
and the quality and quantity of water resources.
Natural Resources Protection
COMMUNITY ROLE
• Plan for growth not to exceed forecasts and
in patterns that do not exceed 4 units per
40 acres.
• Preserve areas where post-2040 growth can
be provided with cost-effective and efficient
urban infrastructure.
• Manage land uses to prevent the premature
demand for extension of urban services, and
so that existing service levels (such as on-site
wastewater management, gravel, and other
local roads) will meet service needs.
COUNCIL ROLE
Provide technical assistance and tools for
resource protection, such as best practices
regarding the use of conservation easements
and clustered development ordinances.
COMMUNITY ROLE
• Plan development patterns that incorporate
the protection of natural resources. Consider
implementing conservation subdivision
ordinances, cluster development ordinances, or
environmental protection provisions in local land
use ordinances.
Water Sustainability
COUNCIL ROLE
• Support the Minnesota Pollution Control
Agency’s regulatory approach to private
treatment systems, which requires
permits for systems designed to treat an
average flow greater than 10,000 gallons
per day of wastewater (approximately
35 homes).
• Advocate that the local community be
the permit holder for private wastewater
treatment systems to ensure long-term
accountability for the proper functioning
and maintenance of systems.
• Provide technical assistance regarding
private wastewater treatment systems
and share information about the
performance of these systems in
the region.
COMMUNITY ROLE
• Protect the rural environment through local
oversight of the management and maintenance
of subsurface sewage treatment systems (SSTS)
to avoid the environmental and economic costs
of failed systems. Proactively explore options to
address failing septic systems.
• Ensure financial and environmental accountability
for installation, maintenance, remediation, and
management of any permitted private
wastewater system.
• Adopt subsurface sewage treatment system
(SSTS) management ordinances and implement
maintenance programs, consistent with current
Minnesota Pollution Control Agency rules (Minn.
Rules 7080-7083).
• Encourage the use of environmentally sensitive
development techniques, such as surface water
management best management practices that
capture, filter, and infiltrate stormwater
where possible.
LAND USE POLICIES BY COMMUNITY DESIGNATION
167
DIVERSIFIED RURAL
Housing Affordability and Choice
COUNCIL ROLE
See policy discussion on Housing Affordability and
Choice in the “Land Use Policy” section.
COMMUNITY ROLE
• Promote a balanced housing supply and
a mix of housing affordability to ensure
long-term community vitality.
Access, Mobility, and Transportation Choice
COUNCIL ROLE
• Plan regional transportation infrastructure
consistent with a rural level of service.
• Support the management of access points to
state and county road systems and emphasize
construction of a local public street system
where needed.
• Encourage communities to plan and develop
local trail connections to the Regional Parks
System where appropriate.
COMMUNITY ROLE
• Plan for and construct local transportation
infrastructure, including trails, sufficient to
meet local needs.
• Plan and develop local trail connections
to the Regional Parks System where
appropriate.
Economic Competitiveness
COUNCIL ROLE
• Where appropriate, promote the use of the Green
Acres and Agricultural Preserves programs to
preserve prime agricultural soils and maintain
agricultural uses as a long-term primary land use.
• Support agriculture as a primary long-term use
to protect the region’s agricultural economy, to
provide economic opportunities for farmers, and
to promote local food production.
• Support connections between the Diversified
Rural communities and other areas both within
and outside of the region that promote safe
travel and ensure efficient transportation of
agricultural products.
COMMUNITY ROLE
• Identify and protect locally important
agricultural areas, in addition to prime
agricultural lands, to provide a range of
economic opportunities.
• Support existing agricultural uses as
primary long-term land uses and consider
allowing agricultural-supportive land uses in
local comprehensive plans.
• Support local property enrollment in the
Agricultural Preserves and Green
Acres programs.
• Consider opportunities for smaller-acreage
agricultural operations to support food
production for local markets.
Building in Resilience
COUNCIL ROLE
See policy discussion on Building in Resilience in
the “Land Use Policy” section.
COMMUNITY ROLE
See policy discussion on Building in
Resilience in the “Land Use Policy” section.
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Flexible Residential Development Ordinance Guidelines
for the Diversified Rural Area
August 2008
Background
The 2030 Regional Development Framework (RDF)i indicates that land use patterns in Diversified Rural Area
Communities “include a mix of a limited amount of large-lot residential and clustered housing with agriculture
and other uses” (RDF p. 27). The RDF further states the communities in the Diversified Rural Area should
preserve areas where post-2030 growth can be provided with cost-effective and efficient urban infrastructure and
accommodate growth without prematurely requiring the provision of regional urban services. In addition, the
2030 Water Resources Management Policy Plan (WRMPP) identifies areas for post-2030 wastewater investment
and service. These areas are described in the text of the document as well as illustrated in Appendix E on a map
titled Regional Wastewater System Long-Term Service Areas.
The existing regional wastewater treatment plants and the broader infrastructure efficiency of contiguous sewered
development are predicated on a residential density ii of three units per acre or greater (WRMPP p. 54). The
Council’s planning strategies for Diversified Rural Areas call for communities in those areas to have land use
plans that “[a]ccomodate growth not to exceed forecasts and clustered development not to exceed 1 unit per 10
acres” (RDF p. 32). However, the results of a recent study of “flexible residential development ordinances”
employed in Diversified Rural Area communities show that some communities have implemented ordinances that
permit activities that are in conflict with metropolitan system plans.iii Density bonuses, large-lot development, and
open space preservation ordinances sometimes permit residential development at densities that will severely limit
the ability of some communities to achieve (in the future) the minimum density requirement of at least three units
per net developable residential acre that is necessary for future cost-effective and efficient regional wastewater
treatment services.
The Council has developed guidelines for flexible residential development ordinances applied in communities in
the Diversified Rural Area and identified as a Long-Term Service Area (LTSA) for regional wastewater services.
These areas are essentially staging areas for future urbanization, and so development ordinances and land use
patterns should reflect as much and not preclude future development on appropriate lands in those areas. A
purpose of flexible residential development ordinances in these areas should be to preserve land for post-2030
growth and to accommodate the future extension of regional urban services.
Communities should study and assess their landscapes to refine their development priorities. There may be areas
within the community that contain an abundance of sensitive natural resources or that the community has
identified as a greenway or conservation corridor. These areas may not be most suitable for future urbanization as
the capability of the land to support development is low and constrained. In these cases, open space development
or cluster development may be adapted to protect those resources to meet the community’s goals.
These guidelines are not intended to replace the work that has been done by numerous communities and
organizations in developing flexible development ordinances. Rather, these guidelines are intended to be used
along with those methods and standards for the varying types of flexible development ordinances.
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Guidelines for Flexible Residential Development Ordinances iv
Areas immediately beyond the current urban services boundary within the LTSA are considered temporarily rural.
Residential development ordinances in these areas should limit densities to one unit per 10 acres, or allow the
clustering of dwellings in a manner that will reserve land for future sewered development, in addition to
protecting any sensitive resources that may exist. Ordinances providing for residential clustering in the above-
described areas should take the following guidelines in consideration when developing or adapting flexible
residential ordinances for these areas.
1. Provide a purpose within the ordinance that describes the need to reserve land resources for efficient
future urbanization when appropriate infrastructure is available to support that development.
Defining the purpose and intent of any ordinance provides the local unit of government with a basis for the
regulations that follow. Clearly stating that a purpose of the flexible residential development ordinance is to
reserve land resources for future development will allow potential applicants to better understand the
regulations as they apply to individual properties. The local unit of government may also wish to apply
aspects of an open space ordinance to other areas within the community that have different characteristics that
they wish to set aside or protect; this distinction should also be stated and defined within the purpose section
of the ordinance.
2. Describe the characteristics of the land required for future urbanization and seek to reserve tracts of
land in a size and configuration capable of supporting future development (for example, non-hydric
soils, location in relation to existing development, etc.).
The ordinance should define the lands that are considered “buildable,” as these lands are considered the most
suitable for development. Removing lands that are restricted due to federal and state regulations, as well as
any features that the local government has defined for protection or conservation, will allow the community to
preserve sensitive natural features and to ensure the availability of land to accommodate future development.
Density bonuses are commonly used by local communities as a means to encourage developers to use a non-
conventional development ordinance. However, without specifying the types of lands that are required for
future development, many communities have inadvertently encouraged large-lot development in which the
private lots often consume most of the developable land and leave little remaining developable acreage
available for future development. The lots within the development are often too large to efficiently extend
urban-level services to the development.
3. Allow no more than 25% of the developable land in a project to be developed. For the purposes of
future urbanization, larger future urbanization parcels should be reserved, limiting the cluster to a
development area that a covers a minority of the area.
To ensure that land is available for future development, the local unit of government should specify the
maximum amount of developable land that is allowed to be used for the initial residential development. For
the purposes of future urbanization, communities should limit the initial development envelope to no more
than 25% of the total buildable area of the project parcel.
4. Require that the parcel(s) set aside for future urbanization be covered by a temporary development
agreement or deed restriction, rather than a permanent conservation easement or other permanent
restriction.
In a typical open space development, with the purpose of long-term preservation of natural resources,
communities usually ensure the long-term maintenance and protection of sensitive natural resources through
the placement of a permanent conservation easement that is often conveyed to a trust or public entity. When
seeking to reserve land for future development, however, the community should not place permanent
restrictions on the capability of the land to be developed. Instead, communities should place on the future
urbanization parcel temporary development agreements or deed restrictions that contain “triggers” for the
removal of such restrictions. The restrictions prevent the land from being developed before urban services are
available. The ordinance should also detail the “triggers,” or conditions, under which such restrictions would
be removed and the parcel made available for development. Such conditions may include the rezoning of the
parcel, a change in the comprehensive plan, and the provision of urban infrastructure and utilities, among
others deemed appropriate by the local unit of government.
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Portions of the development that are designated as undevelopable or are to be set aside for recreational use or
conservation purposes, on the other hand, should be either dedicated to the public or covered with a
permanent conservation easement or permanent deed restriction.
5. Provide for the rezoning of the future urbanization parcel to a residential zoning classification at
densities consistent with Council policy at such time that urban services are available to the parcel.
To ensure the efficient utilization of urban services, communities should allow for the rezoning of the future
urbanization parcel to densities that, at a minimum, are consistent with Council policy. This rezoning should
only occur in conjunction with or after the provision of urban services, when the land is served by the
infrastructure required to support higher density uses.
6. Encourage the use of community wastewater treatment systems to serve the temporary cluster and to
allow for smaller lot sizes within the development.
Clustering homes on smaller lots facilitates the connection of those homes to future sewer services and
ensures that these services are being efficiently and economically utilized. These small lot sizes, however, are
often too small to provide the necessary space for individual sewage treatment systems on each lot, in
addition to a back-up site in case of primary system failure. Using a community treatment system resolves
that issue: by employing a shared drainfield located in a common open space area, individual lots no longer
need to be large enough to accommodate two on-site septic treatment sites. The use of smaller lot sizes will
not only facilitate future connection to sewer services, once they become available, but also will reserve more
developable land for future development.
i This memorandum references the online versions of the 2030 Regional Development Framework (as amended through December 14,
2006), the 2030 Water Resources Management Policy Plan (with revised forecasts as of January 9, 2008), and the Local Planning
Handbook.
ii The Council defines “residential density” as the “number of dwelling units per net residential acre of land” (WRMPP p. 111). For
planning purposes, the Council uses a standard calculation of net developable acres and net density to measure a community’s capacity to
accommodate residential development.
The minimum density requirement is three units per net developable residential acre. Net residential acreage is calculated by
subtracting from gross acres wetlands and water bodies, public parks and open spaces, arterial road right-of-way, and natural
and other resources mapped and protected by local ordinances and in the comprehensive plan update. (Local Planning
Handbook p. 3-5)
iii Under Minnesota Statutes sections 473.858, subdivision 1 and 473.865, subdivision 2, a local governmental unit cannot adopt any
official control of fiscal device which is in conflict with its local comprehensive plans “or which permits activity in conflict with
metropolitan system plans.” Official controls are:
ordinances and rules which control the physical development of a city, county, or town, or any part thereof or any detail thereof
and implement the general objectives of the comprehensive plan. Official controls may include ordinances establishing zoning,
subdivision controls, site plan regulations, sanitary codes, building codes, and official maps. (Minn. Stat. § 473.852, subd. 9)
The “metropolitan system plans” are the “transportation portion of the Metropolitan Development Guide, the policy plans, and
capital budgets for metropolitan wastewater service, transportation, and regional recreation open space.” (Minn. Stat. § 473.852,
subd. 8)
iv Minn. Stat. § 473.854 authorizes the Council to “prepare and adopt guidelines and procedures relating to the requirements of sections
462.355, 473.175, and 473.851 to 473.871 [the Metropolitan Land Planning Act] which will provide assistance to local governmental units
in accomplishing the provisions of [the Act].”
FLEXIBLE RESIDENTIAL DEVELOPMENT LOCAL PLANNING HANDBOOK
FLEXIBLE RESIDENTIAL DEVELOPMENT EXAMPLES FOR THE DIVERSIFIED RURAL AREA
Background
Thrive MSP 2040 indicates that land use patterns in Diversified Rural communities are home to a variety of farm and
non-farm land uses including very large-lot residential, clustered housing, hobby farms, and agricultural uses. Some
Diversified Rural communities are also located in the Long-term Wastewater Service Area (LTSA). These areas are
designated to ensure land availability to accommodate growth post-2040 at the edge of the urbanizing area.
Purpose
The purpose of flexible residential development ordinances and tools in these areas should be to preserve land for
post-2040 growth and to accommodate the future extension of regional urban services. In August 2008, the Council
adopted Flexible Residential Development Ordinance Guidelines for the Diversified Rural Area that describes the
factors communities should take into account if they are considering allowing residential development at densities
greater than 4 units per 40 acres in their communities. The Council has since incorporated these guidelines into Thrive
MSP 2040.
Function
For those communities on the edge of the urbanizing area, designated as part of the LTSA, residential development
ordinances should provide for interim land uses without precluding the opportunity for future development at densities of at
least 3 units per net developable acre to ensure future,
cost-effective and efficient regional wastewater treatment
services. For areas outside of the LTSA, the Council also
encourages the clustering of homes, particularly when
communities are considering densities greater than 4
units per 40 acres.
Communities should study and assess their landscapes
to refine their development priorities. There may be
areas within the community that contain an abundance
of sensitive natural resources or that the community has
identified as a greenway or conservation corridor. These
areas may not be most suitable for future urbanization
as the capability of the land to support development
is low and constrained. In these cases, open space
development or cluster development may be adapted to
protect those resources to meet the community’s goals.
Flexible Residential Development Guidelines
In considering ordinances and development that exceeds the 4 units per 40 acres density, communities should apply the
following guidelines:
1. Include the need to reserve land resources for efficient future urban development as part of the ordinance purpose.
2. Identify the land characteristics required to support future urbanization.
3. Allow no more than 25% of the developable land in a project to be developed, reserving larger future urbanization parcels.
4. Protect future urbanization parcels with temporary development agreements, easements, or deed restrictions.
5. Provide for the rezoning of the future urbanization parcels to a residential zoning classification at densities consistent
with Council policy at such time that urban services are available.
6. Encourage the use of community wastewater treatment systems to serve the temporary cluster.
Please refer to the full document, Flexible Residential Development Ordinance Guidelines for the Diversified Rural Area,
for more information on these six guidelines.
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The Fields of St. Croix, Lake Elmo
1 | Metropolitan Council
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Flexible Residential Ordinance Tools
If a community wishes to allow for increased densities within the Diversified Rural area beyond 4 units per 40 acres, the
community should use mechanisms to allow for the future development of the land at urban development densities of at
least 3 units per net developable acre. There are a number of tools that communities have utilized to meet these goals,
including but not limited to the following:
1. Adopt Cluster Ordinances to preserve open space and allow future urbanization.
2. Permit density bonuses for meeting certain specified ordinance requirements.
3. Use of Planned Unit Development (PUD) regulations to manage development and preserve open space.
4. Require Build-Out Plans (Ghost Platting) to demonstrate future subdivision for the delivery of urban services.
5. Employ platting techniques along with deed restrictions, easements, and covenants to protect open space for future
development.
6. Use of overlay districts in specified areas to ensure mandatory clustering; for example, on land adjacent to urban
service areas.
If a community adopts regulations to allow densities in the Diversified Rural area which exceed 4 units per 40 acres,
the Metropolitan Council will need to review any revised ordinance details to ensure compliance with the community’s
Comprehensive Plan and future expansion of urban services.
FLEXIBLE RESIDENTIAL DEVELOPMENT EXAMPLES
There are many different development styles a community might use to alow for current development while reserving
land for future urban development. This section describes some of the development patterns available to communities.
Traditional Rural Cluster
The traditional rural cluster above shows that a mandatory cluster district may allow for a defined, limited number of lot splits
within a contiguous rural acreage if certain parameters are met, such as specified lot sizes and frontage on a local street.
The above example allows for future subdivision of the residual parcel to allow for urban services. This method of
subdivision would need to be tracked by the municipality over time to ensure that sufficient land is preserved to allow for
a subdivision layout at acceptable densities and access to allow for future urban services.
No conventional lots permitted on arterial street
Original farmstead
Preserved for future
urban development
Future one-acre
parcels reserved for
grandchildren
One acre parcel
sold to son
Local street
Ar
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i
a
l
s
t
r
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Traditional Rural Cluster
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Rural Cluster Development
Credit: Adapted from Rural Cluster Development Guide, Southeastern Wisconsin Regional Planning Commission
The Rural Cluster Development shows a more proactive approach to the preservation of land for future urban service
balanced with the preservation of natural resources.
The first image shows a conventional large-lot rural development which precludes the provision of urban services due to
the ineffective lot layout and inefficiency of multiple or long-distance connection points to urban services. The Council
has found that this style of large-lot rural development does not advance the mission of ensuring orderly and economical
development in the region.
Adapted from Rural Cluster Development
Guide, Southeastern Wisconsin Regional
Planning Commission
Conventional Development
Views
Acres: 80
Lots: 18
Density: 1 unit per 3.3 acres
Minimum lot size: 1/2 acre
Common open space: 75%
Rural Cluster
Acres: 80
Lots: 18
Density: 1 unit per 3.3 acres
Minimum lot size: 3 acres
Common open space: 0%
Views
Note: No conventional lots are typically
permitted on an arterial street.
Rural Cluster v Conventional
3 | Metropolitan Council
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The second example, of a rural cluster development, preserves high amenity open space for resource protection and
recreation, while ensuring a compact lot layout which allows for effective delivery of urban services. Additional urbanized
development may be accommodated in the eastern portion of that site as well. The Rural Cluster Development may
utilize a communal septic system until such time that urban services become available.
Build-Out Plan (Ghost Platting)
The Build-Out Plan, or ghost platting, is a method of master planning for future urban densities in rural large-lot
subdivisions. The subdivision is organized in a way that will facilitate a transition to higher density at some future date,
perhaps through the use of development or service infrastructure triggers. This is often achieved by restricting the
location of buildings to avoid obstructions to future utility and roadway easements. Platting for future urban densities
is achieved by establishing lines for future splits of large lots into smaller lots and dedication of rights-of-way and
easements for future streets, utilities, storm water facilities, etc. This method of subdivision is another front-loading
process which preserves land for future urbanization. Oftentimes, the Build-Out Plan may limit the location and size of
the residential footprint to more effectively allow for future subdivision of lots.
Build Through Acreages
Build Through Acreages can allow for development at lower densities while preserving open space for future
development through the platting process. A large outlot can be established to allow for future development at densities
that can allow for urban service expansion. The outlot may also be encumbered with deed restrictions, covenants, or
easements to provide the interim protection of open space and maintain subsequent triggers for development and
service delivery.
This method can also be useful in areas in a Rural Residential community designation that may benefit from clustering,
but are still undeveloped in the conventional large-lot pattern. In these cases, it may be advisable to preserve land for
future residential development if the outlot abuts land within the Council’s Long Term Service Area.
Rural yield:
8 houses on ~2.5 acre lots
20 acre parcel
Urban build-out yield:
Each rural lot divisible into
6-8 urban lots (total 48-80)
Build out density:
2.4-3.2 units/acre
Ghost Platting
Note: In this scenario no conventional lots are permitted on arterial street, but rather all front on local streets.
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Metropolitan Council
390 Robert Street North
Saint Paul, MN 55101
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Public Information: 651.602.1500
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LOCAL PLANNING HANDBOOK
pond
Initial large lot homes
Build-through example
Potential
future MF
development
Original outlot developed
at urban densities once
municipal services are
available.
Rural yield: 13 houses on
large lots
Urban yield: 157 houses on
the outlot; 3.97 du/ac
Build out density could
include sewer extension to
initial large lot houses and
accomodate future
multi-family development.
The example below, adapted from Bismarck, North Dakota, shows an historic outlot which was subdivided into smaller
lots once urban services became available to the east.
Build-through diagram
Original parcel boundary
(approximately 80 acres)
A portion of the parcel may be used
for rural residential development.
An additional portion of the parcel may be
used for interim rural residential development
if a signicant environmental or open space
resource is preserved.
The rest of the parcel is platted as an outlot,
reserved for future urban development
when municipal services are extended.
(Adapted from RDG Planning & Design)
March 2017