HomeMy WebLinkAbout1D, TCAAP Planning Process AKEN I
MEMORANDUM
DATE: February 16, 2010 Item LD
TO: Mayor and City Council Members
Sue Iverson,Acting City Administrator
FROM: James Lehnhoff, Community Development Director
SUBJECT: TCAAP Public Auction Preparation and
The Public Engagement Process
Action Request
Staff is seeking feedback and direction on the draft TCAAP zoning code, a general public -
meeting, and a meeting with other governmental jurisdictions. Due to the amount of information
in this memo, this topic may take several meetings. It is anticipated that the discussion will
continue at the February 22, 2010, TCAAP work session.
Zoning: The draft TCAAP zoning regulations are intended to generate discussion and to begin
preparing a process for addressing the regulatory aspect of TCAAP. As part of the zoning
review, Staff recommends that the City retain a planner and/or land use lawyer to provide
additional review and perspective on the proposed regulations. Staff can prepare an RFP and
obtain quotes for services for review at an upcoming Council meeting. While the City needs to
work toward establishing appropriate zoning regulations, the City should also continue working
to encourage the remediation of TCAAP, transferring property to Ramsey County, influencing
the public auction process, identifying partners for a future redevelopment, and other related
activities.
Public Meeting: If the City is to hold a public meeting prior to the auction, it is recommended to
hold it before the second bidders' conference so that any new information can be shared. Staff
would recommend a meeting in mid-April. The meeting would be largely informational, though
residents would be encouraged to ask questions and provide suggestions.
Multi jurisdictional Meeting: Adjacent cities could of course attend a general public meeting;
however, a separate meeting can be held with the adjacent cities and other interested
governmental units. Again, staff would recommend holding this meeting before the second
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bidders' conference. Staff is seeking clarification on the goal of the meeting and on which topics
the meeting should focus.
B=,fro=
At the February 1, 2010, meeting, the City Council asked staff to prepare a discussion regarding
a public engagement process for the TCAAP redevelopment planning process. A public
engagement process can come in many forms depending on the needs of a project. For example,
the engagement process may be needed to share information, to gather input for making a
decision, or to have the public make the decision (i.e. a referendum). The process can change
over time as a project evolves and other forms of input are needed.
The circumstances of the TCAAP project have changed substantially in the last year. The
previous planning process with RRLD ended, the layout and size of the TCAAP property is
likely to change before the public auction, and the focus of the planning process has been altered.
In order to prepare an effective public meeting process that truly adds value to the community, it
is important to consider the following:
• What is the goal of the public engagement process?
• What is the message that needs to be shared and/or what information is needed from the
public?
• Who is the target audience?
• When should the public be engaged?
To help answer these questions, it is helpful to discuss what the City is working toward both _
before and after the public auction. The Council reviewed a proposed TCAAP planning process
in September 2009 that was intended to guide the City through the public auction process. While
progress has been made since September, an updated schedule for pre- and post-public auction
planning has been included (Attachment). This schedule will almost certainly change as the
process moves forward and more information is available. Additionally, staff is including a
description and first draft of how the zoning code can be amended to protect the City's interest in
the TCAAP property while providing flexibility for a future development (Attachment).
Determining what the City is working to accomplish prior to and after the public auction should
help us better understand how the public can be involved in a meaningful way.
TCAAP PlanninLy Process Overview
Prior to RRLD withdrawing from the TCAAP redevelopment project in May 2009, the City had
been following a public engagement process with participation from an appointed advisory group
and the general public. This process involved a number of workshops and community open
houses. The purpose of that process was to gather input, prepare a layout, and work toward
adopting a detailed master plan for the TCAAP property. When that process started in 2007, the
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City was working with a developer and held a reasonable belief that the property was going to be
redeveloped in the near future. Because of those circumstances, the City needed to work toward
creating a detailed master plan that included input from the community. That master plan would
then have become the basis for new zoning regulations for the TCAAP property.
Although the City had significant discussions on such topics as land use layouts, design options,
density, and parks, no plans were adopted by the City. Additionally, none of the design
information was translated into a master plan that would be incorporated into the Comprehensive
Plan or City zoning ordinances. While that information may be a resource for future discussions,
the circumstances of the TCAAP property have changed since May 2009. The borders of the
TCAAP property may be adjusted to accommodate the Ramsey County park requests and
removal of the primer tracer area, thereby reducing the number of acres to be sold. The proposed
"local access interchange" on Highway 10 is unlikely to move forward, which reduces the
potential development capacity of the property. Finally, the TCAAP property does not yet have
a developer. Despite these changes, there are items that should be addressed prior to the public
auction.
Now that the GSA and Army intend on selling the TCAAP property at a public auction, the
timing and immediate goals of the planning process have changed. Preparing a detailed master
plan right now would be difficult because of the many open questions related to the property,
including,but not limited to, the need for intersection upgrades, the extent of the remediation that
needs to be completed, and other infrastructure improvements. Additionally, creating a detailed
master plan with public input prior to the auction would involve considerable time and resources
that could result in a plan that is not viable. When the property is sold, however, it will be
important to be ready to work with a developer and actively involve the community. Starting a
public planning process too early could have a negative impact if the input is set aside or the
process is restarted when the developer is known. A public planning process is more successful
when the public can be involved and have a long-lasting, meaningful impact.
The 2030 Comprehensive Plan was written to set the foundation for a mixed use development on
the TCAAP property that includes housing, parks, open space, and businesses. Although the
changes to the TCAAP property are important, the basic mixed use idea is still in place even if
such details of final density and road locations are not yet known. Prior to the public auction, the
City will be in the best position if the Zoning Code is updated to reflect the City's goals and
overall interests for the property. This information will help potential bidders make
knowledgeable decisions and help protect the City from a legal perspective on land use.
The planning process has become somewhat unique since RRLD withdrew from the project.
Typically, a city would adopt a plan through a community planning process. Once the plan is
adopted, the zoning regulations would be written to implement the plan zoning is a tool of
planning and not a plan by itself. Prior to the public auction, much of the focus needs to be on
prepping the zoning code to handle a future master plan. The proposed zoning regulations would
become, in a sense, a "plan to create a plan." At this stage, the public engagement process may
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be more about getting information out to the public and keeping the residents, businesses, and
adjacent cities updated on the status of the project. When the City begins to work with a
developer to formulate a detailed master plan for the TCAAP property, community input will
again become essential.
Comprehensive Plan
The 2030 Comprehensive Plan is the guiding document for the City's Zoning Code. While State
Statute requires that a zoning code to be in conformance with a city's comprehensive plan, there
is quite a bit of flexibility in the Arden Hills 2030 Comprehensive Plan Future Land Use Map in
regards to TCAAP. Within the portion of TCAAP that may be redeveloped, the property is
divided into two categories:
• Mixed Residential (-240 acres)' — provides for a variety of housing types and densities in close
proximity, including single-family detached homes, single-attached homes, condominiums,
townhomes, apartments, and senior housing options. The anticipated average density is 10.4
units per acre with a minimum average density of six units per acre up to a maximum density of
46 units per acre. This land use is designated for the proposed TCAAP redevelopment, and the
density is subject to change once a final land use plan is selected.
• Mixed Business (-220 acres) — areas designated for a variety of businesses, including
commercial, certain light industrial uses, warehousing, office, general business, retail. This
designation will be used for the future business uses on the TCAAP property.
These two categories were written based on the concept of a mixed use development that was
being prepared with RRLD. Despite the changes to the TCAAP redevelopment process, these
categories still serve as the basis for a TCAAP redevelopment plan and allow the City to adopt
updated zoning regulations for the TCAAP property. If necessary, the definitions or borders of
these future land use categories can be amended, subject to Metropolitan Council approval. As it
stands, housing would be limited to the Mixed Residential area and businesses would be limited
to the Mixed Business area. Once a final decision is made regarding the Ramsey County land
use requests for parks and open space, it may be helpful to amend the Comprehensive Plan to
include those areas, but that is not necessary at this time.
Zoning Code Update
A comprehensive plan does not include such details as setbacks, impervious coverage,
landscaping requirements, or sign regulations that is the job of the Zoning Code. If RRLD had
not withdrawn from the project, a detailed master development plan would have been created
and translated into zoning regulations that would guide the TCAAP property redevelopment.
The western and southern side of the TCAAP property is currently zoned I-2: General Industrial
District (Attachment). The eastern side of the property is zoned R-1: Single Family Residential.
'The acreage has not been adjusted to account for the Ramsey County open space requests.
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While the new future land use categories in the Comprehensive Plan do not necessarily exclude
the uses in the existing I-2 or R-1 zones, the existing zoning does not support the concepts
proposed on the future land use map. The future land use categories allow for single family
housing and industrial uses; however, the zoning limits the possibility for a wider variety of
businesses and housing types. Due to the discrepancy in uses and because the existing zoning
was not designed with a large redevelopment in mind, it is recommended to update the zoning
code in preparation for a public auction.
Until there is a detailed master plan, it is not possible create the specific zoning regulations that
would have been adopted as part of an RRLD development. However, the City can still set the
parameters that a future TCAAP redevelopment must follow. These parameters can be
incorporated into two new zoning districts that align with the future land use map. The new
zoning district would require the developer to use the Planned Unit Development (PUD)process,
which would be enhanced to specifically address the unique circumstances of the TCAAP
property. The PUD process would have been part of the RRLD master plan.
At this point, it would be a guessing game to set minimum lot sizes, create setbacks, or map road
locations. Instead, the new zoning districts should focus on the City's overall goals for the
property, the desired character of a redevelopment, known requirements, and development
constraints. The TCAAP Reuse Statement that was adopted in November 2009 will help create
the new district. The new zoning districts need to balance flexibility to encourage creativity with
more specific requirements that address the City's concerns. Once the property is sold, the
parameters in this new zoning district would guide the process to create a master development
plan that would engage all stakeholders, including residents of Arden Hills. As previously noted,
the new zoning regulations are really a process for creating a plan.
It will likely take several meetings to prepare, review, and edit the language of the new zoning
districts. While the draft ordinance has quite a bit of information, it is a work in progress and
can be edited (Attachment).
The draft zoning district language would create two new zoning districts, Mixed Residential
(MR) and Mixed Business (MB), and affect four parts of the Zoning Code:
1320.04 —Purpose of Districts: All of the zoning districts have a purpose that is listed in
this section. A purpose statement would be added for the new MR and MB districts.
When a city adopts a zoning regulation, it must be based on a rational purpose that enacts
community goals.
1320.05 — Land Use Chart: The land use chart lists the permitted and conditional uses for
each zoning district in the City. If a use is not listed as permitted or conditional, then it is
automatically unpermitted. Some of the uses, i.e. office, retail, have very broad -
definitions that allow for a wide variety of uses. The chart would need to be updated to
include the new MR and MB districts.
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1320.06 — District Requirements Chart: This chart includes the lot size, coverage, and
setback information for each district. The MR and MB districts will be added to the
chart, though the details will likely be added as part of a master plan that is developed at
a later time.
1320.135 — Special Requirements for the Mixed Residential and Mixed Business
Districts: This section is the workhorse of the new MR and MB districts. This section
includes the enhanced PUD process and the components that would be used to create a
TCAAP master plan. The developer would be required to go through a concept plan
review with the City Council prior to submitting a full master planned unit development
application. A PUD submittal will require the developer to submit information related to
the following planning components:
• Land Use
• Design Standards
• Transportation and Parking
• Park, Recreation and Open Space
• Utilities
• Construction Staging -
• Environmental Review and Remediation
• Sustainability
• Contractual
• Financial
All of the information in this section would need to be completed before the application
is considered complete. Determining when an application is complete is important
because that starts the official review clock that is prescribed under State Statutes.
Unless extended by the applicant, the review process is limited to 120 days. However,
the City determines when the application is complete, and the information needed to
make an application complete for TCAAP will be substantial. The City will also have the
ability to institute a development moratorium for TCAAP if that becomes necessary.
The language for the draft zoning districts is anticipated to change throughout the review
process. In order to adopt the new zoning districts, it will require a public hearing with the
Planning Commission and City Council approval.
Public En2nement Process
Community engagement is a critical part of the planning process and need to be an integrated
part of the process. As listed at the beginning of this memorandum, it is important to consider
the following questions when preparing a public engagement process:
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• What is the goal of the engagement process?
• What is the message or information that needs to be shared?
• Who is the target audience?
• When should the public be engaged?
For the TCAAP project, it may be helpful to think of the planning process in two general phases:
pre-public auction and post-public auction. The pre-public auction is fundamentally about
putting the City in the best position when the property is sold. The years of prior community -
input and discussion have provided many of the goals and basic ideas for the future reuse of the
TCAAP property. The public portion of the pre-public auction phase could largely focus on
keeping the residents, businesses, and other government jurisdictions informed of where the
project is at, what the community is trying to accomplish, and how it will be handled in the
future. This could occur through informational meetings, the City newsletter, the website, and
local newspapers. It is difficult to involve the public in preparing the zoning language because it
is largely a technical exercise, and it is not creating a plan to review at this time. Moreover, the
zoning code update is meant to spur the community discussion when a master planning process
starts in the future.
The post-public auction phase will require many more discussions and decisions about the details -
of a potential redevelopment. The actual master planning work would be conducted during this
phase and the public engaged to be informed and involved in the project. The second phase
would include the discussions about density, design, transportation, and other issues related to
the TCAAP redevelopment. Since the City does not yet have a timeline for redevelopment, the
details of the planning and public participation do not need to be finalized. However, this phase
could utilize an appointed committee to discuss and review plans, much like the former master
development advisory group (MDAG) that was created in 2007, and include open houses. The
existing commissions and committees could also play a role in the planning process.
Attachment
• Updated TCAAP Planning Timeline
• Draft Zoning Regulations for the Mixed Residential and Mixed Business Zoning Districts
City of Arden Hills
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2030 Comprehensive Plan: Future Land Uses
• Mixed Residential (-240 acres) — provides for a variety of housing types and densities in
close proximity, including single-family detached homes, single-attached homes,
condominiums, townhomes, apartments, and senior housing options. The anticipated average
density is 10.4 units per acre with a minimum average density of six units per acre up to a
maximum density of 46 units per acre. This land use is designated for the proposed TCAAP
redevelopment, and the density is subject to change once a final land use plan is selected.
• Mixed Business (.-220 acres) — areas designated for a variety �iof businesses, including
commercial, certain light industrial uses, warehousing, office, g.eeral`business, retail. This
designation will be used for the future business uses on the TCAAP property.
• Park and Open Space (-76 acres)—areas designated as pubI par1��.
• Park Preserve (-49 acres) — areas designated as natural_ or scenic areas that are to be
preserved for public use or open space.
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