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05.b RR-N Zoning Map Amendment
1 | P a g e Date of Meeting: June 2, 2026 To: Chair Loeffler and Members of the Planning Commission From: Greenlee Dahle, Consultant City Planner T.J. Hofer, Consultant City Planner Re: Zoning Map Amendment – Multiple Properties on Big Marine Lake REQUEST City staff have prepared a zoning map amendment to rezone seven parcels from Rural Residential General (RR-G) to Rural Residential Neighborhood (RR-N) within the Shoreland Management Overlay (SM-O) of Big Marine Lake. The standards for consideration of a zoning map amendment (rezoning) are located in 153.500.060 Subd. 1 (A) of the UDC. The Planning Commission is requested to make a recommendation on the proposed zoning map amendment to the City Council. BACKGROUND Staff are proposing to rezone seven parcels from RR-G to RR-N. These parcels are located north of the Bliss Addition on Big Marine Lake. These changes are part of an effort to better align the existing conditions, neighborhood character, and historic development patterns with current zoning classifications and development standards. The proposed rezoning would amend the base zoning district for seven parcels but have no impact on the SM-O regulations that apply to the properties. The request originated from a variance application for a dwelling at 19453 Manning Trail North. Staff determined that a variance was not the most appropriate tool to address the site constraints and confirmed with the applicant that they would be open to the city considering a rezoning. Instead, staff evaluated the surrounding properties and identified seven similarly situated parcels that share development characteristics. The City Council reviewed the concept on May 6, 2026, and directed that the request proceed to the Planning Commission for public hearing and formal consideration. EXISTING CONDITIONS The parcels are currently zoned RR-G and located within the shoreland of Big Marine Lake. Several of these parcels are nonconforming in size and historically platted lots. 2 | P a g e PROPOSED REZONING The RR-G zoning district is established, “to provide for principal residential use with estate or large-lot development patterns.” The Unified Development Code (UDC) also notes that RR-G, “includes lot or parcel configurations that are generally unplatted, including mostly non-riparian land.” The RR-N district is established in the UDC for smaller lots that 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 UDC also notes that many of these lots have transitioned into year-round use. The sections of the UDC that establish standards for the RR-G and RR-N zoning districts are provided as attachments to this report. The RR-N zoning district is closely tied to the standards established in the Shoreland Management Regulations (Shoreland Ordinance). 3 | P a g e The RR-G district has a minimum lot size of 2 acres, which none of the parcels included in the rezoning meet. The RR-N district has specific standards for existing lot sizes that align with the minimum lot size within the Shoreland Ordinance of 40,000 sq. ft. All but two of the lots in the rezoning meet this standard. The two that do not meet this standard would be considered legal nonconformities. One of these properties is contiguous and commonly owned with an adjacent parcel, so combination would be required in the future to make it a conforming lot. The RR-N dimensional standards vary from the RR-G district in structure setbacks from side property lines. The RR-G district requires 20 ft. structure setbacks on each side of the lot. The RR-N district has a minimum of 10 ft. structure setbacks on each side. All properties are located within the SM-O district and as such the Shoreland Ordinance standards apply regardless of the zoning district applied to the properties by the UDC. Where there are multiple standards, the more strict shall apply. Notably, within the subject parcels, the six to the east are separated from the bulk of the RR-N zoned properties by an approximately 16 ft. strip of land that is part of a larger 34.81-acre parcel. Normally, when a rezoning proposes a zoning district that is not contiguous, the city must consider if the rezoning is spot zoning. The League of Minnesota Cities provides the following guidance regarding spot zoning: Spot zoning usually involves the rezoning of a small parcel of land in a manner that: Has no supporting rational basis that relates to promoting public welfare. Establishes a use classification inconsistent with surrounding uses and creates an island of nonconforming use within a larger zoned district (for example one lot where industrial uses are permitted in an otherwise residential zone). Dramatically reduces the value for uses specified in the zoning ordinance of either the rezoned plot or abutting property. 4 | P a g e The term public welfare is not directly defined, but through case law has been historically supported by the two following points, surrounding inconsistent uses and dramatically reducing the value of abutting properties. When comparing uses between the RR-G and RR-N districts, the RR-G district generally has more uses allowed than the RR-N district, with the majority of the differences being that the RR- G district allows agriculture and various commercial activities such as commercial kennels, resorts/conference facilities, wineries, and yard waste facilities. The Shoreland Ordinance is more strict in its allowed uses, and generally prohibits commercial uses, so the districts are essentially the same in terms of uses. The proposed rezoning should have no negative impact on the properties to be rezoned or the properties surrounding them. The lots are likely to be developed for residential purposes under either zoning district. Review Considerations 153.500.060 Subd. 1 (A) establishes the following for zoning amendments: I. The City Council and Planning Commission shall consider possible effects of the proposed Zoning or Comprehensive Plan Amendment Application. Its judgment shall be based upon (but not limited to) the following factors: a. The specific policies and provisions of the City’s adopted Comprehensive Plan, including public facilities and capital improvement plans. b. Whether the proposed action meets the purpose and intent of this Chapter or in the case of a map amendment, it meets the purpose and intent of the individual Base Zoning District. The proposed rezoning is consistent with the policies and provisions of the City’s Comprehensive Plan and that the proposed rezoning will have no impact on the public facilities and capital improvement plans. The proposed rezoning is consistent with the purpose and intent of the RR-N district. ANALYSIS Review Comments The submittal was sent to city staff and other regulatory agencies for review and comment. Engineering Department The City Engineer provided a comment related to the difference in dimensional standards that would apply: Larger setbacks make grading operations easier in all situations and should not be minimized when it is not necessary. Bliss lots remaining with 10 ft setbacks is reasonable considering that larger setbacks may make the lots unbuildable. I would not recommend minimizing setbacks of already established zoning districts, but rezoning a parcel to something more applicable is a different situation. Carnelian-Marine-St. Croix Watershed District 5 | P a g e The Carnelian-Marine-St. Croix Watershed District provided the following comment: Overall I would agree that the proposed change does appear to better align with the RR-N zoning language. One technical comment is that the change will also limits drainage area and increases erosion pressures for steep sites. Not implying that these issues will occur, just that we’ve had some of these arise recently in the City due to the tight spacing Department of Natural Resources The proposed rezoning was provided to the Department of Natural Resources Area Hydrologist for comment. No comments were received. Staff Analysis Staff believe that the proposed rezoning meets the intent and purpose of the RR-N district. Staff recommended the proposed zoning map amendment after reviewing an application for a variance in the area that asked to allow a building encroachment within side setbacks. Staff found that the proposed development would meet RR-N district standards, and a rezoning is a more minimal action than a variance. The memo is provided as an attachment to this report. The existing lots are narrow properties that likely require variances to be developed with the larger RR-G side setbacks of 20 ft. The seven parcels are more characteristic of RR-N lots, especially in this neighborhood. There are many parcels to the south that are similarly nonconforming, smaller riparian lots. Legally nonconforming uses and structures are allowed to continue under state statutes and the UDC and are not impacted by the proposed zoning map amendment. CMSCWD and the City Engineer noted that smaller side setbacks can create difficulties for managing stormwater maintenance and control. From a zoning perspective, this concern appears as an issue that should resolve itself at individual site design: if a proposed structure is too large to make stormwater controls work, then the structure must be redesigned. It is important to remember that setbacks are minimums. Not every lot can maximize each allowed setback. Further, while considering how the dimensional standards apply to these lots is relevant to the rezoning discussion, debating the effectiveness of or concerns about existing dimensional standards is not germane to the rezoning discussion and should be discussed as a separate topic. COMMISSION ACTION The Planning Commission can do one of the following: 1. Recommend approval, with or without conditions, of the attached resolution. 2. Recommend denial, with findings, of the attached resolution. 3. Table the request for further review/study. RECOMMENDATION Staff recommend that the Planning Commission open a public hearing and receive any and all comments from the public. 6 | P a g e Staff recommend the Planning Commission recommend approval of the zoning map amendment: Motion to recommend the City Council approval of the attached ordinance to amend the Zoning Map regarding the RR-N District, with the findings and conditions described within the staff report. Attachments A. Location Map B. Draft Ordinance 2026-XX Zoning Map Amendment C. City Council Work Session Staff Packet, dated May 6, 2026 D. Unified Development Code 153.200.030 Subd. 3 Rural Residential Districts Page 1 of 1 CITY OF SCANDIA ORDINANCE NO. 2026-XX AN ORDINANCE AMENDING THE OFFICIAL ZONING MAP TO REZONE SEVEN PARCELS FROM RURAL RESIDENTIAL GENERAL (RR-G) TO RURAL RESIDENTIAL NEIGHBORHOOD (RR-N). The City Council of the City of Scandia, Washington County, Minnesota hereby ordains: Section 1 Zoning Map Amendment. The official Zoning Map, as adopted in 153.200.020 Subd. 1 of the Unified Development Code of the City of Scandia is hereby amended to change the designation of the following described properties from Rural Residential General (RR-G) to Rural Residential Neighborhood (RR-N): See Attachment A; and Property IDs: 2903220320016, 2903220320017, 2903220320015, 2903220320004, 2903220320005, 3003220410004, and 3003220410005, Washington County, State of Minnesota. Section 2 Zoning Map. The zoning map of the City of Scandia shall be republished in the ordinary course to show the aforesaid zoning, and in the interim the Clerk shall appropriately mark the zoning map on file at the City Hall for the purpose of indicating the rezoning hereinabove provided for in this ordinance, and all of the notations, references, and other information shown thereon are hereby incorporated by reference and made a part of this ordinance. Section 3 Effective Date. This ordinance shall be in full force and effect upon its adoption. Passed and adopted by the City Council of the City of Scandia this ___ day of ___________ 2026. 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This drawing is a compilation of records, information, and data located in various city, county, and state offices, and other sources affecting the area shown, and is to be used for reference purposes only. The City of Scandia is not responsible for any inaccuracies herein contained. Disclaimer: © Bolton & Menk, Inc - Web GIS 4/28/2026 11:35 AM City Limits Parcels 04/17/2026 Lot Lines Parks Shoreland Overlay PUD Overlay Lakes Mining Overlay Saint Croix River District Zoning Agricultural Core Agricultural Preserves Rural Residential General Village Neighborhood Rural Commercial Rural Residential Neighborhood Village Historic Core Village Center Open Space - Planned Unit Development Industrial Park 1 | P a g e Date of Meeting: May 6, 2026 To: Honorable Mayor and Members of the City Council From: T.J. Hofer, Consultant City Planner Re: Proposed Zoning Map Amendment – Multiple Properties on Big Marine Lake Staff recently received an application from Wayne and Ruth Clasen for their property at 19453 Manning Trail North to allow for a variance to construct a dwelling that would encroach into the side yard setbacks. The property is currently zoned Rural Residential General (RR-G) and is located to the north of the Bliss Addition. After reviewing the initial application, staff believe a variance is not the most appropriate solution to the claimed practical difficulty. Instead, the property, along with the six similar properties around it, should be rezoned to the Rural Residential Neighborhood zoning district. The proposed structure by the Clasen’s would appear to result in a structure that meets all dimensional standards of the Rural Residential Neighborhood zoning district, thereby eliminating any need or request for a variance. 2 | P a g e Rural Residential General v. Rural Residential Neighborhood The Rural Residential General (RR-G) zoning district is established, “to provide for principal residential use with estate or large-lot development patterns.” The Unified Development Code (UDC) also notes that RR-G, “includes lot or parcel configurations that are generally unplatted, including mostly non-riparian land.” The Rural Residential Neighborhood (RR-N) zoning district is established in the UDC for smaller lots that 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 UDC also notes that many of these lots have transitioned into year-round use. The RR-N zoning district is closely tied to the standards established in the Shoreland Management Regulations (Shoreland Ordinance). Generally, both zoning districts allow lots that are approximately two acres, however, the RR-N district includes numerous lots that do not meet this standard, and the RR-N district and Shoreland Ordinance have minimum lot sizes of 40,000 sq. ft. for existing lots. Based on the characteristics and purposes of these districts, staff believe that the properties depicted below should be rezoned to Rural Residential Neighborhood. These parcels include PIDs 2903220320004, 2903220320005, 2903220320015, 2903220320016, 2903220320017, 3003220410004, and 3003220410005. Notably, PID 3003220410003 (the large parcel that is connected to the lake via a ~16 ft. strip of land) is excluded from this based on the parcel fitting closer to the purpose statement of the RR-G zoning district and its riparian access being based only on the ~16 ft. strip of land. DISCUSSION Staff have prepared the following questions and discussion points for the City Council to consider: 3 | P a g e • Does the Council agree that the parcels appear to be consistent with the purpose statements of the RR-N zoning district? • As six of the parcels are separated from the larger area of RR-N zoned parcels by PID 3003220410003, the Council would need to consider if the rezoning would fall under the definition of spot zoning. These considerations generally include: o Does the Council believe that the rezoning would be supported by a rational basis that relates to promoting public welfare. o Does the Council believe that the rezoning would establish a use classification inconsistent with surrounding uses and creates an island of nonconforming use within a larger zoned district? o Does the Council believe that the rezoning would dramatically reduce the value for uses specified in the zoning ordinance of either the rezoned plot or abutting property. COUNCIL ACTION The City Council should discuss the proposed rezoning of property. As part of this preliminary discussion, the Council need not establish findings related to the actual approval of the rezoning but should discuss the general intent and purpose of the zoning district, and if the rezoning is reasonable. If the City Council believes that the proposed rezoning has merit, they should recommend the rezoning to the Planning Commission to be heard at a public hearing, and for the Commission to consider the request and establish findings of fact. As the rezoning would impact seven properties that total 7.57 acres, the property owner of the seven properties would need to be notified per state statute, as well as other landowners within 1,320 feet of the property in question per local ordinance and other reviewing entities such as the Department of Natural Resources. RECOMMENDATION Staff recommend the City Council discuss the proposed rezoning of property. If Council finds merit in the proposed rezoning, staff recommend initiating the rezoning. Attachments A. Location Map City of Scandia, MN CHAPTER 153: UNIFIED DEVELOPMENT CODE (UDC) DRAFT SECTION 153.200 ZONING DISTRICTS Adopted 09.20.2022 153.200 page-8 Subd. 3. Rural Residential Districts. The Rural Residential Districts are predominantly single-family principal uses with accessory uses and structures that support the rural character of the City. There are two distinct development patterns in this category including historically platted riparian and non-riparian lots abutting or in proximity to the lakes, and general rural residential patterns with larger lot configurations. The lands zoned for rural residential uses are categorized by two designations and are intended to provide a direct correlation between dimensional standards, use, and development patterns of the area. Purpose of Rural Residential General (RR-G). 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. Rural Residential General Dimensional Standards. The following table is a summary of the RR-G district-specific dimensional standards for newly created lots or parcels with private well and septic systems. Table 153.200.030-6. Rural Residential General (RR-G) Dimensional Standards – Density and Lot Size Lot Dimensions (only for lots created after the effective date of this UDC) A Lot Size (minimum) Density (Maximum) 2.0 Acres 4 Dwelling Units per 40 Acres B Buildable Area (minimum) 1.0 Acres C Lot Frontage by Lot Size (minimum) • 2.0 – 3.0 Acres 160 Feet • 3.0 – 4.0 Acres 240 Feet • 4.0 Acres or Greater 300 Feet • Cul-de-sac (at terminus) 60 Feet Figure 153.200.030-5. Rural Residential – General (RR-G) Dimensional Standards – Density and Lot Size City of Scandia, MN CHAPTER 153: UNIFIED DEVELOPMENT CODE (UDC) DRAFT SECTION 153.200 ZONING DISTRICTS Adopted 09.20.2022 153.200 page-9 Table 153.200.030-7. Rural Residential General (RR-G) Dimensional Standards and Setbacks Principal and Accessory Structure Setbacks (Minimum) D Front • Minor Arterial 150 Feet from centerline, or 75 Feet from ROW, whichever is greater • Major or Minor Collector 100 Feet from centerline, or 50 Feet from ROW, whichever is greater • Any other Public Street 40 Feet E Side 20 Feet F Rear 50 Feet Accessory Structure Standards1 G Location Behind Principal Structure Size 1,000 SF Residential Accessory Structure Number 1 Residential Accessory Structure Coverage and Height Standards (Maximum) Impervious Surface Coverage 25% H Principal structure height 35 Feet I Accessory structure height 35 Feet, but not taller than Principal Structure Other Standards Principal & Accessory Uses See Section 153.300.020-2 Table of Uses Character & Development See Section 153.400 1Accessory Structure Standards identified based on Minimum Lot Size. Accessory Structure Standards can be found in Subd. 6 of this Section. Figure 153.200.030-6. Rural Residential – General (RR-G) Dimensional Standards and Setbacks City of Scandia, MN CHAPTER 153: UNIFIED DEVELOPMENT CODE (UDC) DRAFT SECTION 153.200 ZONING DISTRICTS Adopted 09.20.2022 153.200 page-10 Purpose of Rural Residential Neighborhood (RR-N) Zoning District. 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. Rural Residential Neighborhood Zoning District Dimensional Standards. The following table is a summary of the RR-N District-specific dimensional standards for newly created lots or parcels with private well and septic systems. Table 153.200.030-8. Rural Residential Neighborhood (RR-N) Dimensional Standards – Density and Lot Size Lot Dimensions (only for lots created after the effective date of this UDC) Lot Size Lots in SM-O for Recreational Development Lake Lots in SM-O for Natural Environment Lake Existing Lot of Record (minimum) 0.92 Acres 1.84 Acres A New Lot (minimum) 2.0 Acres 2.0 Acres Density (maximum, apply to any new division of property) 4 DU/ 40 Acres 4 DU/ 40 Acres B Buildable Area (minimum, New Lot) 1.0 Acres 1.0 Acres C Lot Width (minimum if Riparian, New Lot) 150 Feet 200 Feet D Structure Setback from OHWL (minimum, Riparian) 100 Feet 150 Feet E Lot Frontage by Lot Size (minimum) • Less than 2.0 Acres 100 Feet • 2.0 – 3.0 Acres 160 Feet • 3.0 – 4.0 Acres 240 Feet • 4.0 Acres or Greater 300 Feet • If cul-de-sac lot 60 Feet Figure 153.200.030-7. Rural Residential – Neighborhood (RR-N) Dimensional Standards – Density and Lot Size City of Scandia, MN CHAPTER 153: UNIFIED DEVELOPMENT CODE (UDC) DRAFT SECTION 153.200 ZONING DISTRICTS Adopted 09.20.2022 153.200 page-11 Table 153.200.030-9. Rural Residential Neighborhood (RR-N) Dimensional Standards and Setbacks Principal and Accessory Structure Setbacks (Minimum) F Front • Minor Arterial 150 Feet from centerline, or 75 Feet from ROW, whichever is greater less • Major or Minor Collector 100 Feet from centerline, or 50 Feet from ROW, whichever is greater less • Any other Public Street 40 Feet G Side 10 Feet H Rear • Non-Riparian 50 Feet D • Riparian See OHWL Setback in Table 9 Accessory Structure Standards1 Location Outside all setbacks, if in front of principal structure see Character Standards Size 1,000 SF Residential Accessory Structure Number 1 Residential Accessory Structure Coverage and Height Standards (Maximum) Impervious Surface Coverage 25% I Principal Structure Height 35 Feet J Accessory Structure Height 35 Feet, but not taller than Principal Structure Other Standards Principal & Accessory Uses See Section 153.300.020-2 Table of Uses Character & Development See Section 153.400 1Accessory Structure Standards identified based on Minimum Lot Size. Accessory Structure Standards can be found in Subd. 6 of this Section. Figure 153.200.030-8. Rural Residential Neighborhood (RR-N) Dimensional Standards and Setbacks (Example RR-N, SM-O)