Project History: In 2015, Menard, Inc. submitted development plans for this 50.5-acre site that included amendments to the 2030 Comprehensive Plan Land Use Map and text and a rezoning of the property to allow for construction of a home improvement store in the south 14 acres of the property.
The initial plans show a 236,000-sq. ft. store with future medical office development on 14 acres, and industrial development, storm water ponding and open space, and road right-of-way on the remaining property.
The development plans went through several iterations and the City Council reviewed the proposed Comp Plan amendments and rezoning request on February 9, 2017. At that meeting, the Council adopted a resolution authorizing submittal of the amendments, that included the re-designation of the south 19 acres to "C" (Commercial), to the Metropolitan Council for their consideration. In a letter, dated March 9, 2017, the Metropolitan Council approved the proposed amendments.
Since that time, the City has been working with the applicant on issues related to the project such as overall design, traffic, access, storm water ponding, and design of the North Creek Greenway trail. The following information is a review of the current plans, which shows a 210,000-sq. ft. Menard's store in the southwest corner of the site, with a 4-acre commercial lot in the southeast corner, and three (3) outlots that will be used for future office/office warehouse and storm water ponding.
Comprehensive Plan: The subject property is currently guided "IND” (Industrial) on the 2030 Comprehensive Plan Land Use Map as well as the draft 2040 Land Use Map. The category description, which is similar in both plans, allows offices, assembly, warehouse, manufacturing and other similar activities within an enclosed building to limit the amount of dust, noise, odor and other adverse impacts.
The current zoning district categories that regulate industrial uses include “I-1” (Limited Industrial), “I-2” (General Industrial) and “BP” (Business Park). A limited percentage of floor space (10% of gross floor area) is permitted for retail activities accessory to the industrial uses. Use of the “I-2” zoning district will be phased out as redevelopment opportunities arise to comply with the industrial land use policies of the current Comp Plan.
The applicant is requesting that the southwest 19-20 acres of the site be re-designated from its current "IND" classification to "C" (Commercial). The commercial designation includes a wide variety of retail, office, and service uses that vary in intensity and off-site impacts. The City uses the zoning ordinance to regulate the intensity and characteristics of development based upon land use criteria and performance standards. Examples of limitations to development include required parking, building setbacks, infiltration, site access and lot coverage.
The proposed commercially designated property would be developed for a 210,000-sq. ft. Menard’s store. According to the Comprehensive Plan, retail uses typically encompass the traditional community shopping businesses and occupy much of the downtown area. It is intended to accommodate a wide range of commercial goods and services. Off-site impacts include activity, light, noise and generally higher traffic generation rates than other commercial uses. Retail land uses will be zoned “RB” Retail Business), “SC” (Shopping Center), and “PD” (Planned Development), which allows uses according to the specific performance standards:
- High quality site and architectural design and building materials are expected to be used within this land use category to promote pleasing off-site views of the development;
- Development in the downtown area shall adhere to the Downtown Design Guidelines;
- Landscaping shall be installed to provide aesthetic treatment of buildings and to soften parking lot areas;
- Significant traffic generation during the weekday and weekends is associated with retail development. Traffic studies may be requested in conjunction with the review of large developments that have the potential to threaten the integrity of the existing and planned roadway system. Additionally, developments that lower the level of service on adjacent roadways or intersections may be required to install traffic improvements to improve the level of service to its pre-development condition if City approval is granted;
- Driveway access points to the development shall be from non-local streets or those designed for primarily non-residential traffic. No direct access to County Road #42 and Cedar Avenue shall be allowed; and
- Lighting is limited to parking lot and building illumination designed for employee safety.
Zoning: The property is currently zoned “I-2” (General Industrial). General Industrial districts are designed to serve the smaller “quasi-industrial” uses, such as machine shops, sign shops, mill-working establishments, and the like. Three rezoning options are available for the City to consider. The first would be to rezone the properties consistent with the proposed Comp Plan designations.
The second would be rezone the property to “PD” (Planned Development). City code defines a Planned Development as an urban development often having two or more principal uses and having specialized performance standards relating to an overall approved development plan to provide for an optimal land use relationship. A Planned Development provides the following:
- Allows for a variety in the types of environment available to the people of the city;
- Encourages more efficient allocation and maintenance of privately controlled open space in residential developments through the distribution of overall density of population and intensity of the land use where an arrangement is desired and feasible;
- Provides the means for greater creativity and flexibility in environmental design than is provided under the strict application of the zoning and subdivision chapters while at the same time preserving the health, safety, order, convenience, prosperity and general welfare of the city and its inhabitants;
- Encourages an overall design within the natural boundaries for an area; and
Provides an overall guide for developments that are staged because of the size of an area.
Rezoning to a Planned Development would allow the City to negotiate with the land owner/developer on the type of uses, site coverage, area requirements and performance standards, and development phasing specific to the project area.
The third option, which the applicant has indicated on their plans, would be to rezone the property "GB" (General Business) and "I-1" (Limited Industrial). General Business districts are designed for heavy uses and those businesses which tend to serve other businesses and industry as well as residents. Limited Industrial districts are areas that are appropriate for manufacturing, warehousing, and similar industrial uses having a minimum of nuisance characteristics. Although construction material sales is allowed in the General Business district, it is unlikely that Menard's operation would fit that fall into that use.
Preliminary Plat: The preliminary plat shows two (2) lots and three (3) outlots and road right-of-way for 150th Street West (CSAH 42), Johnny Cake Ridge Road, 147th Street West and a public street that will provide direct access to the lots and outlots within the plat. Lot 1 will be the location of the proposed Menard's store, warehouse and outdoor storage area. Lot 2 is slated for future development as is Outlot C, which could be further subdivided in the future. The northwest corner of Outlot C as well as all of Outlot A will be used for storm water ponding. Drainage and utility easements will cover that portion of Outlot C that will be used for storm water ponding as well as all of Outlot A. The illustrative and utility plans show Outlot B being used for storm water ponding purposes, but no drainage or utility easement over that outlot is shown on the plat.
A 30-foot wide trail easement is proposed along the west property line, which will run from 147th Street West to 150th Street West. This will be the location of a section of Dakota County's North Creek Greenway trail, a 14-mile
regional trail that travels through Empire Township, Farmington, Lakeville, Apple Valley, and
Eagan. The County is currently working with the adjacent property owner to the west of this project on acquiring additional land for the trail. Staff is proposing that the section of the trail located in Lot 1 be dedicated as an outlot.
A 50-foot wide roadway easement exists along the east side of the existing parcel. The applicant is proposing to dedicate 40 feet of that 50-foot easement for public right-of-way for existing Johnny Cake Ridge Road. This does not appear to be enough right-of-way for the road improvements needed to accommodate the development on the site.
There is also a 26-foot wide transmission line easement that runs along the east side of the site. Development of this site and the necessary road improvements to serve the site will likely require the relocation of the overhead transmission line and changes to their easement.
The City Engineer has additional comments related to the preliminary, which are contained in the attached memo.
Site Plan: The site plan shows a 174,600-sq. ft. Menard's store, 27,650-sq. ft. garden center, 46,671-sq. ft. warehouse and 468 surface parking spaces on Lot 1. Access to the site will be a shared drive lane with Lot 2 off of Street A, a second access from Street A that will provide access to the outdoor area and warehouse as well as the store, and a right in/right out only access from 150th Street West. The east/west leg of Street A will align with 149th Street West. An roundabout will be constructed at that intersection.
There are currently two driveways along 150th Street West and one along Johnny Cake Ridge Road. Those driveways will be removed as part of any development on the site and access restriction easements will need to be established along Johnny Cake Ridge Road and 150th Street West except at the location of the right in/right out only drive access along that street.
The County generally allows accesses to their roads only when they serve development within all of the plat, which is not the case with the right in/right out driveway along 150th Street West. They would like to be assured that there will be sufficient vehicle stacking in the parking lot for vehicles leaving the site to enter 150th Street West without causing problems to traffic on that street.
As stated previously, the site shows 468 surface parking spaces. The minimum required parking for this use can vary significantly, depending on how you define the proposed uses. If you define the store as a retail use, the minimum required parking for the store, warehouse center, and garden center would be approximately 884 spaces plus additional employee parking. If the store was classified as a building sales store, the minimum required parking would be approximately 293 spaces plus additional employee parking.
Building Elevations: The submitted plans indicate that the front elevation will be precast concrete panels with a mountain red brick finish and tan block columns, wainscoting, and horizontal trim. The west elevation will have a unpainted tan split-face concrete block exterior finish. The east elevation will have a finish consisting of a clear polycarbonate panel and emerald green metal panels. The north elevation will have an exterior finish that will consist of a combination of green metal panels and tan split-face block.
Staff has concerns with the materials proposed for the west, north and east elevations. The west elevation will be totally exposed and should be constructed of the same materials as the front of the building. The east and north elevations, which will be 30 feet tall, will be partly screened by a 15-foot tall wood fence. The remaining 15 feet of metal wall panel will to be visible from the public street.
The north elevation of the warehouse will have an exterior finish that consists of a combination of horizontal treated fence material, red brick and tan block. This elevation will tie into a 15-foot tall wood fence that will screen the outdoor yard area from the public. The fence will have four-foot wide tan brick columns that will be spaced every 90 feet.
Landscape Plan: The landscape has been reviewed by staff and their comments are included in the attached memo from the City Engineer. The applicant should make the appropriate revisions to their plan in accordance with staff's recommendations.
The plan identifies several cart corrals in the parking lot. These cart corrals shall have raised concrete curbs to delineate the chutes and shall incorporate landscaping elements into their design.
A propane fueling station will be located in the northwest corner of the parking lot. Protective measures in accordance with applicable codes shall be installed around the filling station area.
Utility Plans: The utility plans have been reviewed by the City's engineering staff and their comments are included in the City Engineer's attached memo. Revisions should be made to the utility plans to bring them into conformance with staff's recommendations.
Street Classifications/Accesses/Circulation: Access to the site will be via 150th Street West (CSAH 42), a principal arterial road, Johnny Cake Ridge Road, a major collector street and 147th Street West, a minor collector street. Other that a right in/right out only access drive connection will be off 150th Street West, no other private access will be allowed from the existing streets.
Public streets will be constructed within the site that will provide direct access to the property within the development. The first phase will include a roundabout intersection at 149th Street West and a full intersection at 147th Street West. A future roundabout intersection will be constructed at 148th Street West and the west leg of that street will likely intersect with Street A.
Bolton & Menk, the City's consultant reviewed previous plans and identified the following improvements to Johnny Cake Ridge Road that will be needed:
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A raised median from 147th Street West to CSAH 42;
- Roundabouts at 148th and 149th Streets West;
- A right in/right out only access at the driveway entrances to the Holiday convenience store and Lifetime Fitness building;
- Additional turn lanes on Johnny Cake Ridge Road at CSAH 42 and 147th Streets West intersections; and
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The dedication of additional road right-of-way to accommodate the suggested improvements, which will require the relocation of the Great River Energy electrical transmission line outside of the right-of-way; and
improvements to CSAH 42 would also occur with development on the subject property.
These improvements along with the proposed right in/right out only intersection along 150th Street West will require the dedication of additional right-of-way for both streets.
Pedestrian Access: The applicant has submitted a bike and pedestrian circulation plan, which identifies the location a portion of the North Creek Greenway and sidewalks/pathways along the both sides of Street A and the west side of Johnny Cake Ridge Road. Sidewalk connections internal to the development sites to the public pedestrian system should be incorporated into each phase of development.
Signs: The submitted building elevations identifies signage on the south elevation and an elevation of a proposed monument sign is included with their submission. All signage will be required to meet the City's sign regulations and will be reviewed in detail by staff at the time of submittal of a sign application.
Dakota County Review: Because the proposed subdivision/development is located adjacent to a county road, it is subject to review by the Dakota County Plat Commission. The plans were reviewed by the Plat Commission at its July 9, 2018, meeting and their comments are included in an attached letter.
Public Hearing Comments: Open the public hearing, receive comments and close the public hearing. It is the policy of the Planning Commission not to act on a public hearing item the night of the public hearing.