02/22/1994 - City Council SpecialAGENDA
SPECIAL CITY COUNCIL MEETING
TUESDAY
FEBRUARY 22, 1994
5:00 P.M.
EAGAN MUNICIPAL CENTER BUILDING
I. ROLL CALL AND ADOPTION OF AGENDA
II. COMMERCIAL LAND USE STUDY
III. JOINT MEETING APRNRC/PARK PLAN MASTER STUDY
IV. OTHER BUSINESS
a. Maintenance of Trailway /Oakridge Senior Center
b. School Boundaries Model
V. ADJOURNMENT
MEMO TO: HONORABLE MAYOR AND CITY COUNCILMEMBERS
FROM: CITY ADMINISTRATOR HEDGES
DATE: FEBRUARY 18, 1994
SUBJECT: SPECIAL CITY COUNCIL MEETING, TUESDAY, FEBRUARY 22, 1994
A special City Council meeting is scheduled for Tuesday, February 22, beginning at 5:00
p.m. The meeting will be divided into two (2) parts. Part 1, beginning at 5:00 p.m., will be
presentation and discussion relative to the Commercial Land Use Study and Part 2,
scheduled at 7:00 p.m., is a joint meeting with Advisory Parks, Recreation and Natural
Resources Commission to further consider the Park Master Plan Study.
Enclosed on pages through are copies of the Commercial Land Use Study
background report prepared by ommunity Development and, enclosed without page
number, is information from the Parks and Recreation Department regarding the Park
Master Plan Study.
/s/ Thomas L. Hedges
City Administrator
OTHER BUSINESS
Item a. Maintenance of Trailway /Oakridge Senior Center - -City Councilmember Awada has
asked that a request she received from an employee of the Oakridge Senior Housing
Building located on Cliff Road be discussed. Apparently, residents of Oakridge are
requesting consideration by the City to clear snow and maintain the trailway between the
City and the commercial shopping area, mainly Cliff Lake Center.
Item b. School Boundaries Model - -City Councilmember Hunter would like brief discussion
about the School Boundaries Model he has been working on the past few weeks.
COMMERCIAL LAND USE STUDY
BACKGROUND REPORT
FEBRUARY 1994
COMMUNITY DEVELOPMENT DEPARTMENT
CITY OF EAGAN, MINNESOTA
a
L INTRODUCTION
One of the stated goals of the City of Eagan is the promotion of development of commercial
complexes within the City in order to provide services for its citizens, employment
opportunities, and a sound tax base. In a matter of a decade, Eagan went a long way in
meeting this goal, having grown from a small "bedroom" community to a more fully- rounded
community with a significant population and employment base and supporting commercial
facilities which serve not only this City but also surrounding communities.
Because of this rapid pace of development, Eagan is fast approaching build -out. As less and
less land is readily available for development, land use decisions often become more
complez. Providing a full range of commercial goods and services and employment
opportunities within Eagan must be balanced with the declining land supply, demands on
the transportation system, and economic viability. To ensure that the proper planning tools
are in place to assist the decision makers in achieving the proper balance of commercial
development, the City is undertaking a comprehensive study of commercial land and
development in Eagan. The proposed outcome of the study will be to clarify the City's
vision for commercial development.
Specifically, the primary product that will result from this study is a new commercial Land
Use Plan Element and Map. The Land Use Plan Element and Map will be reviewed and
updated to include the City's commercial development goals developed as part of the study
process, and to reflect the results of the market study, the changing character of Eagan and
commercial development in general, and to alleviate some of the administrative difficulties
now encountered with the Land Use Plan Map. Two additional studies that will be used
to facilitate this study are as follows: 1) a commercial market feasibility study will be
conducted to determine the future retail space demands and absorption within the City, and
2) a transportation study will be conducted to determine the levels of development that can
be supported by the City's transportation system.
The process to be followed in completing the study will include a series of City Council
briefings and joint Advisory PlAnning Commission/Economic Development Commission
workshops. This background report, providing an overview of the existing commercial Land
Use Plan Element and Map and its issues, is for the first meetings of this process.
Subsequent meetings will include overviews of the commercial market feasibility study
report and the transportation study reports. Based on these reports and input received at
the meetings, a new commercial Land Use Plan Element and Map will be developed and
presented for public bearing and City approval. Also during the study process, two or three
briefings for members of the development community will be held.
This background report is organized into five sections as follows:
• a study introduction
• a background of the Comprehensive Guide Plan
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1
An appendix containing descriptions of the existing commercial areas in Eagan is also
included with this report.
It is intended that this report provide sufficient background information and an introduction
to the issues to generate comments and ideas regarding the preferred direction of
commercial development in Eagan.
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• a review of the current commercial Land Use Plan
• a review of trends that have occurred since 1980 which affect development of
a new commercial Land Use Plan
• a discussion of policy issues to help guide the City's vision of commercial
development
II. BACKGROUND
In order to provide adequate direction for any needed changes to the Land Use Plan
Element and Map, the context in which commercial land use planning and commercial
development exists today must be reviewed.
The Eagan Comprehensive Guide Plan is the Qty's statement of goals, objectives and
policies for guiding growth and development within the City. The Plan consists of ten
elements for directing all facets of development, from land use to transportation to parks,
etc. The first such plan for the City prepared under the 1976 Metropolitan Land Planning
Act was developed in 1980 and adopted in 1983. The overall goals and policies in the 1980
Plan, along with the statistical data, were reviewed and updated in 1985 and 1986. This
update was adopted in 1988. Two elements of the Plan — Transportation and Public Utilities -
-were updated in total in 1991. Other changes to the Plan include reprinting of the Land
Use Guide Plan Map in 1988, 1991 and 1993. These reprints merely reflected approved
land use designation amendments to the Map.
Although the 1980 Plan has been, in part, reviewed and updated since its initial adoption
in 1983, the Land Use Plan Element and Map has not had a thorough review or update
since the work done in 1985 -86 for the 1988 update. This Plan Element and Map are of
particular importance to the Commercial Land Use Study because they describe the
character, intensity, relationship, type and location of all land uses.
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III. CURRENT COMMERCIAL LAND USE PLAN
A GENERAL COMMERCIAL GOALS AND POLICIES
As mentioned, with the 1988 update the City reviewed the goals and policies of the 1980
Plan. Those previously adopted goals and policies were reaffirmed in the 1988 update, with
special emphasis noted for the following three general goals.
1. Over- zoning for commercial and industrial development will be resisted and
a special effort will be made to make zoning consistent with economic
viability.
2. Special emphasis will be placed on beautification and good appearance along
major arterials leading to and through the city and potential adverse types of
development such as "strip" commercial zoning will be resisted.
3. Eagan will attempt to develop as much of a self - reliant community as possible
wherein employment, recreational services, commercial services and
community facilities for most of the needs of the residents will be provided
within the community.
In addition, the City adopted several goals and policies in the 1988 update specifically
related to commercial development. These goals and policies are as follows.
Goals: 1. The City of Eagan will continue to promote the development of
commercial and industrial complexes within the city in order to provide
a sound tax base, services for its citizens and employment
opportunities.
2. The City will provide proper land use controls in order that this
development will continue to enhance the appearance and property
values within the community.
3. The City will provide those services that are needed in order to
support the commercial and industrial developments, such as public
utilities, recreational facilities for employees, transit service and
thoroughfares.
Policies: 1. The City will pursue the development of a wide variety of services in
order to provide commercial services within the city to serve its
citizens.
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2. The City will continue its efforts to relate zoning to the demonstrated
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potential for commercial and industrial development and not to over -
zone areas beyond the realistic economic potential that exists within
the city.
3. The City will continue its efforts to carefully scrutinize commercial and
industrial developments in order that proper performance standards
are achieved and in order that landscaping and the general appearance
will enhance the property values of adjacent areas rather than become
a distraction or detriment.
4. The city will continue to take an active role in promoting commercial
and industrial development in the community. The elected officials of
the city, city staff and civic organizations will make specific contact
with developers in order to promote commercial and industrial
development in the city.
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B. RELATED GOALS AND POLICIES
In addition to the goals and policies contained in the current Land Use Plan Element, the
City's Economic Development Commission (EDC) has also adopted goals which relate to
commercial development in Eagan. These goals are as follows.
1. Retain, expand and diversify tax base
2. Retain, expand and diversify employment base
3. Nurture a healthy, user friendly business environment
4. Enhance the image and visibility of the City
S. Attract primary dollars from outside the community
6. Retain, expand and diversify retail and service facilities for Eagan residents,
employees and businesses
7. Create massings of economic activity
8. Communicate effectively with businesses and developers
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C. VISION OF THE CURRENT PLAN
1. Types of Commercial Areas
The current Land Use Plan has six commercial categories that, with the exception of the
CPD (Commercial Planned Development) designation, are identical to the commercial
zoning districts. These categories are described in the current Plan as follows:
• limited Business: These are areas that are particularly exposed to residential
neighborhoods and are thus suitable only to those businesses having relatively
little incompatibility with residential uses.
• Neighborhood Business: These are relatively small commercial areas (three
to twelve acres) located in the center of residential neighborhoods to serve
the daily needs of the adjoining residents. They may also be located near
community shopping centers because they provide a different level of services
(daily needs). The neighborhood businesses usually would be from 4,000
square feet to 20,000 square feet of floor area. The area to be served would
generally be a walling neighborhood of one mile, and the center would
provide the services required on a daily basis, such as dairy store, small
restaurant, barber shop, beauty shop, dry cleaning establishment and similar
retail businesses or services.
• General Business: These areas are designed for the heavier uses and those
businesses which tend to serve other businesses, as well as residents. These
uses can be incompatible with residential development, therefore businesses
in this classification are concentrated and insulated as much as possible.
Examples of General Businesses are auto service centers, lumber yards, a car
wash, automobile dealerships and similar uses.
• Community Shopping Center: These areas usually are anchored by a major
grocery store and also would be developed with a drug store, hardware store,
clothing store, appliance store, auto retail store, liquor store, service station
and similar services usually required on a weekly basis by the surrounding
residents. The area may also be developed with allied offices such as real
estate offices, clinics, athletic clubs or similar facilities. Community Shopping
Center areas generally range in size from 10 to 40 acres in area with 40,000
to 100,000 square feet of floor area. The populations served by these centers
generally range from 10,000 to 15,000 persons.
• Roadside Business: These are areas located and developed primarily to serve
the transient population attracted by the interstate highways (1-494 and I -35E)
or Cedar Avenue. As such, these areas usually are located near freeway
interchanges for accessibility. The Roadside Business areas are expected to
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8
develop with restaurants, auto services, truck stops, motels and similar uses
oriented to the traveler.
• Commercial Planned Development: The CPD areas are expected to develop
with a combination of commercial uses. The specific uses are determined by
a Planned Development Agreement" which is approved by the City Council
for a specified number of years for each property. Those individual plans
need to be reviewed in order for a citizen to determine the type of
commercial uses permitted in each CPD.
•
LAND USE PLAN MAP
COMMERCIAL DESIGNATIONS SUMMARY - FALL 1993
TOTAL ACRES
TOTAL ACRES
DEVELOPED
TOTAL ACRES
VACANT
LB
271
99
172
NB
78
44
34
GB
43
19
24
RB
18
2
16
CSC
189
123
66
CPD
1204
337
867
TOTAL
1803
624
1179
C. VISION OF THE CURRENT PLAN
2. Existing Commercial Development
The following table summarizes the existing acreages of land, both developed and vacant,
in each of the above described commercial categories in the Land Use Plan. Approximately
35 percent of commercially - guided land is developed.
ll
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10
C. VISION OF THE CURRENT PLAN
3. Location.
The attached maps show the locations of land in Eagan which is currently guided on the
Land Use Plan map for commercial use. Figure 1 shows all land currently guided for one
of the six commercial categories. Figures 2 through 7 show individually the land which is
currently guided, respectively, for LB, NB, GB, RB, CSC or CPD use.
As Figure 1 illustrates, much of the commercially-guided land is located adjacent to arterial
roads, and is often clustered in nodes around intersections. Appendix A attached to this
report describes the existing development in these nodes. A copy of the current Land Use
Guide Plan Map is also included with this report for reference.
FIGURE 1
COMMERCIAL - GUIDED LAND
NB, GB, RB, CSC, & CPD)
-.,
...._.OEM
•
. ;. t
COMMERCIAL LAND USE STUDY
11
•
12
FIGURE 2
LB (LIMITED BUSINESS)
COMMERCIAL LAND USE STUDY
)1A
•
NB (NEIGHBORHOOD BUSINESS)
FIGURE 3
COMMERCIAL LAND USE STUDY "
14
FIGURE 4
GB (GENERAL BUSINESS)
COMMERIAL LAND USE STUDY
FIGURE 5
RB (ROADSIDE BUSINESS)
_.w%
__
_. • - alma
k
r _
*OM • . NS
•
COMMERCIAL LAND USE STUDY
11
1S
16
FIGURE 6
CSC (COMMUNITY SHOPPING CENTER)
COMMERCIAL LAND USE STUDY
I g
FIGURE 7
CPD (COMMERCIAL PLANNED DEVELOPMENT)
COMMERCIAL LAND USE STUDY
cq
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CITY OF EAGAN
POPULATION AND EMPLOYMENT
1980 THROUGH 2020
T
POPULATION
EMPLOYMENT
1980
20700
11300
1990
47409
26000
% CHANGE 80-90
129.03
130.09
2000
63500
36300
% CHANGE 90-00
33.94
39.62
2010
68500
40300
% CHANGE 00-10
7.87
11.02
2020
71000
41800
% CHANGE 10.20
3.65
3.72
r
IV. TRENDS SINCE 1980
A. DEMOGRAPHIC TRENDS
Eagan has grown tremendously in both population and employment since 1980. The fact
that Eagan was the third fastest growing city in Minnesota between 1980 and 1990,
Increasing approximately 129 percent in population, is evidence of this growth. Employment
in the City likewise grew an estimated 130 percent over the same period
Both population and employment are expected to continue to grow steadily over the next
two decades. The following table illustrates the actual and forecasted population and
employment growth for Eagan through the year 2020.
sources: 1980 and 1990 Census, Eagan Planning, and Metropolitan Council
The year 2020 population projection of 71,000 basically represents saturation. This is a
noticeable decrease from the population saturation of approximately 100,000 projected in
both the 1980 Plan and 1988 Update. Two trends In residential development in Eagan
provide an explanation for this decrease in population saturation. One is the development
of residential land at much lower densities than previously predicted. For example, much
of the D-II (Mixed Residential, 0 to 6 units per acre) land in the City has developed with
single- family detached houses at densities in the 2.5 acre range, as opposed to a mixture of
housing unit types at a density at the upper limit of the range. Another trend has seen
several areas of the City previously designated for D -III (Mixed Residential, 6 to 12 units
per acre) or D-W (Mixed Residential, +12 units per acre) amended to allow development
of low density single- family houses. Many of these changes have been at the request of
developers due to market conditions.
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B. EAGAN AS A CORPORATE OFFICE CITY
As noted in the above section on demographics, Eagan's employment base has grown
dramatically since 1980. A certain amount of this growth can be attributed to the several
large corporate office complexes that have located in the City since that time. These
include the corporate headquarters of West Publishing and Northwest Airlines, branches of
Cray Research and NCS, Waterview Office Tower now occupied by Blue Cross -Blue Shield,
and multi- tenant offices at Eagan Woods Office Park and Eagandale Corporate Center.
The current Land Use Plan does not provide a clear vision for the corporate office or
corporate headquarters as a distinctive, yet integral, part of commercial development in
Eagan. Although the goals of the current Plan, and those of the EDC, allude to promoting
and retaining a strong employment base, the issue of how and where corporate offices fit
into the City's commercial Land Use Plan is not addressed. This raises the idea of the need
for a new "office park" land use category.
The attached map, Figure 8, shows the locations of existing corporate offices (developed
both pre - and post - 1980). The map also generally illustrates vacant parcels of land
immediately surrounding these offices.
a(
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FIGURE 8
CORPORATE OFFICE LOCATIONS
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1 - Corporate Offices
a
- Vacant Land
C. REGIONAL SETTING
Many changes have occurred in the regional setting relative to retail commercial
development since 1980, not only in the types and sizes of retail developments occurring,
but also in the regulatory controls governing development in the region.
1. Types and Sizes of Retail Developments
Since 1980, the region has seen the demise of the traditional neighborhood center with a
full service grocery store and full service drug store for anchors, and, with the exception of
the Mall of America, virtually no new regional shopping malls. What has emerged in place
of these former retail staples are "convenience centers" and sub - regional power centers.
Convenience centers generally have the quick -stop grocery and gas, video store, dry cleaner,
daycare, and sometimes insurance or medical /dental office. The sub - regional power centers,
with discount department stores, warehouse clubs, outlet stores and category killers are
competing with the regional malls.
These retail trends and the supply of existing retail development of all types throughout the
region will affect Eagan's ability to develop additional retail. The commercial market study
will address these affects.
2. Regulatory Controls
Also affecting Eagan's ability to build additional commercial development are post -1980
regulatory controls requiring a regional perspective of the carrying capacity of infrastructure
and the environment. Metropolitan systems, environmental review rules, indirect source
permit regulations, and wetland regulations mandated by state and regional agencies have
evolved in recent years to place an additional layer of consideration as to whether a project
is viable. In other words, in addition to considering whether a market exists and land is
available for a retail project, the project must also fit the infrastructure and be sensitive to
the environment.
c9,
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D. HOSPITALITY INDUSTRY
The hospitality industry has veritably boomed in Eagan since 1980, with the addition of
three hotels /motels, a fourth one currently under construction and a fifth one in the
planning stages, and the formation of an Eagan Convention and Visitors Bureau. Much of
this can be attributed to Eagan's location and easy access (with the opening of T.H. 77,1-
494 and I -35E) to the international airport, the growth of the City's corporate employment
base, and probably even the Megamall.
The current Plan does not deal with the hospitality industry as a separate entity. Rather,
hotels /motels are considered a component of the RB category. Because of the destination
nature of hospitality businesses, including restaurants, location may be more important that
confining such uses to a specific land use category.
V. POLICY ISSUES
A. 'WHAT, WHERE, HOW AND HOW MUCH" COMMERCIAL
Considering the above background information on the current commercial Land Use Plan
and recent trends in commercial development, several questions arise, such as:
• What types of commercial land uses should we plan for in Eagan?
• How much commercial land should we set aside?
• How should we locate and design our commercial areas?
The following text lays out some ideas about how the City might approach answering these
questions.
B. WHAT TYPES OF COMMERCIAL LAND USES SHOULD WE PLAN
FOR IN EAGAN?
In the review of the current commercial Land Use Plan, existing commercial development
and recent trends, it became apparent that the current commercial categories are somewhat
unwieldy and that the current categories are too static to have evolved with the changes in
commercial development in Eagan. Some of the shortcomings identified with the current
categories are as follows
• The direct one - for -one correlation between the commercial Land Use Plan
categories and commercial zoning districts creates confusion about the difference
between the two. The public has frequently questioned the reason for a land use
designation if it is the same as zoning.
• The one-for-one correlation between the land use designations and zoning districts
makes the land use designations far too specific. Very little flexibility is allowed
within the land use designations because of the correlation to the zoning districts;
therefore, nearly every time a property is rezoned, a Land Use Plan amendment is
required.
• The intent of the CPD category is unclear, and the uses allowed in the district are
very broad. The current Land Use Plan Map has fourteen areas currently guided as
CPD. However, the types of development occurring on these sites varies
dramatically. For example, the �D area in the northeast corner of the City is
developed with corporate and research offices with large employment bases.
Conversely, the CPD area at Cliff Road and I -35E is developed with community -level
retail shopping, and the CPD area at Lexington Avenue and Diffley Road is
developed with neighborhood -level retail shopping.
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• Emergence of the corporate office as a major player in Eagan's commercial
development is not clearly addressed in the current Plan.
• The shift in retail centers to power centers and convenience centers. The current
Plan addresses retail more in terms of traditional neighborhood centers, community
centers, and regional centers.
• Hotels and motels are uses for which visibility is paramount. The current Plan
limits the development of such uses based on commercial category as opposed to
location.
Following are the suggested categories for use in the new commercial Land Use Plan,
developed to respond to the above noted issues:
• Major Diversified Center
• Major Commercial -Retail
• Neighborhood Commercial -Retail (retail and office)
• Office Park
• Unique Commercial
Descriptions of the uses and characteristics of the five suggested commercial categories are
as follows.
MAJOR DIVERSIFIED CENTER
MAJOR COMMERCIAL-RETAIL
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• large -scale or concentrations of smaller -sale retail, office and service businesses
• sub - regional and community level shopping and large offices as the base
• neighborhood level retail, office, and service businesses as secondary uses
• high- density residential on the edges
• general business uses as tertiary uses if sufficiently designed to prevent
incompatibility with base and secondary uses
• hotels /motels if located adjacent to a major thoroughfare
• large -scale or concentrations of smaller -scale retail and service businesses
• community level shopping as the base
• neighborhood level retail, service and offices as secondary uses to the base
• medium - density residential on the edges
• general business uses as tertiary uses if sufficiently designed to prevent
incompatibility with base and secondary uses
• hotels /motels if located adjacent to a major thoroughfare
NEIGHBORHOOD COMMERCIAL RETAIL
• smaller -scale retail, office and service businesses
• neighborhood level retail, services and offices
• convenience retail, services and offices
• residential on the edges with suitable buffering
• hotels /motels if located adjacent to a major thoroughfare and of compatible scale
with base uses
OFFICE PARK
• large -scale or concentrations of smaller scale offices and institutional uses with
substantial employment bases
• accessory retail, service and general business uses to serve employees of primary use
• high density residential on the edges
• hotels /motels if located adjacent to a major thoroughfare
UNIQUE
• retail, service and general businesses which don't quite fit with the Major
Commercial -Retail or Neighborhood Commercial - Retail categories
• special theme - centered uses, such recreation or entertainment
• destination - oriented uses where good visibility may not be available
• botels /motels if located adjacent to a major thoroughfare
or7
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C. HOW MUCH COMMERCIAL LAND SHOULD WE SET ASIDE?
The market feasibility study being conducted for the (Sty by Economic Research
Corporation will review the demand for retail goods and services in Eagan based on
population and income. When compared to existing supply, this information will provide
some guidance as to the scale of land which the City may need to set aside for retail
development in order to accommodate the unmet demand.
Demand for large corporate offices, which will be considered as a distinct land use category
in the new Plan, is more difficult to project because of the variability of factors involved.
Large corporations will consider land availability, access, support services, financial
incentives and the regulatory environment when choosing a location for its facilities. Based
on comments some of Eagan's corporate citizens have expressed, the City apparently meets
all of these factors satisfactorily at this time. However, as Eagan continues to grow, suitable
land for corporate offices could become scarce if allowed to develop with whatever is "hot"
on the market at the time. As such, the City must consider how much land to set aside for
corporate office parks in the long run now to prevent an erosion of our supply of suitable
land.
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D. HOW SHOULD WE LOCATE AND DESIGN OUR COMMERCIAL
AREAS?
With new commercial Land Use Plan categories developed, the next step is to develop
policies for guiding the design and location of our commercial areas. The descriptions of
the new commercial land use categories provide a general idea of the scale and types of uses
planned for. The scale and types of uses in turn provide a general idea of the design and
locational needs. The following criteria will be considered when developing these design
and locational policies:
MAJOR DIVERSIFIED CENTER POLICES
• pursue development of only one Major Diversified Center to concentrate and create
a massing of mixed use activity
• promote a unified architectural design, including signage
• promote dense, mixed -use development
• provide high level of transportation access to support high level of activity (Le., locate
next to principal and minor arterials)
• provide pedestrian access within the major subsections of development
• integrate corporate offices through design techniques, including shared parking and
transit access
• require buffering (landscaping, suitable site orientation, transitional uses) between
incompatible adjacent land uses
Potential candidate site: Yankee Doodle Road/I -35E
MAJOR COMMERCIAL -RETAIL POLICIES
• prevent over- supply of this category through market analyses (Le., allow development
of additional Major Commercial -Retail nodes only if market analysis shows no
impact to existing or planned nodes)
• provide high level of transportation access to support high level of activity (Le., locate
next to principal or minor arterials)
• integrate neighborhood level shopping and services on edges to serve the daily needs
of the surrounding residential areas
a-�
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• require buffering (landscaping, suitable site orientation, transitional uses) between
incompatible adjacent land uses
• provide pedestrian access to and within the node
• provide transit access
• promote a unified architectural design, including signage
Potential candidate site: Cliff Road/I -35E
NEIGHBORHOOD COMMERCIAL RETAIL POLICIES
• locate to provide one -mile radius service areas for convenience, if supported by the
market
• integrate into nodes around intersections, concentrated on one or two corners, to
prevent over - supply and the spread of strip development
• provide pedestrian access to and within the node
Potential candidate site: Pilot Knob and Diffley Roads
OFFICE PARK POLICIES
• preserve prime locations of large tracts of land suitable to campus -type developments
• provide high level of transportation access to support high employment
concentrations (Le., locate next to principal and minor arterials)
• integrate accessory service commercial uses into the node to serve the employment
base
• provide pedestrian access within the node
• provide transit access
Potential candidate site: I -494/Highway 149 (Northwest Airlines, Cray, The Waters)
UNIQUE POLICIES
• promote flexibility to respond to market conditions
• require compatibility with surrounding land uses
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• provide pedestrian access
• provide transit access
Potential candidate site: Cedarvale
Additional criteria that will be considered in developing these policies includes land area
and building size ranges and zoning district correspondence (Le., several zoning districts
should be appropriate for each one commercial land use category for flexibility).
APPENDIX A
DESCRIPTIONS OF DEVELOPMENT IN EXISTING COMMERCIAL NODES
Ced113
The Cedarvale Area is Eagan's oldest community shopping center district. In general terms,
the area comprises Cedarvale Mall, Cedarvale Highlands, Silver Bell Center, and related
free standing businesses. Originally situated at the intersection of Highway 13 and Old
Cedar Avenue, the area capitalized on these crossroads as well as one of Eagan's oldest
residential areas to create a variety of commercial and retail opportunities. The Cedarvale
Area includes the City's only fully enclosed mall, as well as a variety of retail, recreational,
banking, restaurant and service establishments.
In the early 1980's the character of the area began to change as the construction of the new
Cedar Avenue and it's clover -leaf intersection significantly modified traffic access to the
area. The area became virtually invisible from Cedar Avenue, and many of the businesses
which relied heavily on drive -by traffic were sold or converted to different uses.
In the mid to late 1980's, commercial competition increased in Eagan as other areas zoned
for shopping center uses began to develop. In particular, Town Centre and Cliff Lake
Center began to compete for community scale service and retail dollars. Efforts to focus
in on particular markets for the area, such as recreation, have met with limited success.
The Cedarvale area may be on its way to becoming the viable area it once was. Certain
improvements to the area have been made, and additional improvements are currently being
proposed. Some redevelopment of the area has already occurred.
This area is guided for both CSC (Community Shopping Center) and GB (General Business)
uses on the Land Use Guide Plan map. It is expected to continue to develop and redevelop
with a mixture of commercial, retail, and service industries.
Diffi/
This area is generally defined by the crossroads of Diffley Road and Cedar Avenue. The
NE quadrant of this juncture contains a long strip of property that is both zoned and guided
for GB uses. The property contains the E-Z Stop convenience store and 3.82 acres of
vacant land.
The NW quadrant contains a Super America convenience store, as well as two parcels
comprising approximately 32 acres that were originally intended to be a part of the
Splashland Planned Development, and later the Diffley -Cedar Planned Development. No
development ever occurred on these parcels, yet they are still zoned PD (Planned
Development) and guided for CPD (Commercial Planned Development) on the Land Use
APPENDIX A 1
Guide Plan map.
The SE quadrant of the Diffley -Cedar node contains an Amoco gas station, a video store,
and an auto parts store. There is also a 7 acre parcel of vacant property just south of the
aforementioned services that is zoned for RB uses, and guided for NB (Neighborhood
Business) uses. Further south in the same quadrant, and separated from the vacant NB
parcel by a church, are the Cedar Ridge Additions. These additions contain several retail
and service entities, as well as just over 5 acres of vacant property. This area is zoned LB
(limited Business). The developed parcels of this area are guided LB as well; the vacant
5 acres are guided for GB development.
The SW quadrant contains Metcalf Junior High SchooL
Cedar /Cliff
This area is generally defined by the crossroads of Cliff Road and Cedar Avenue. The NE
quadrant of this node contains a McDonald's restaurant, a Kentucky Fried Chicken
restaurant, a Holiday convenience store, a . Precision Tune, and a Group Health Clinic.
There are also 5 vacant lots that comprise nearly 20 acres of property located in this area.
This vacant property is both zoned and guided for CSC development. Also included in this
node is the Cedar Cliff Additions, which contain a mixture of office, retail and service
development, as well as one 2.57 acre outlot that is vacant and designated in the Land Use
Guide Plan map for LB uses.
The NW quadrant contains the Cinnamon Ridge Additions - apartment, townhouse, duplex
and single family residential development.
The SE quadrant of the Cedar /Cliff node contains Hardee's, Caspar's, Doolittles, and Pizza
Hut restaurants, as well as over 30 acres of unplatted LB guided property, half of which is
currently used for an antenna farm for KLXX Radio and half of which is used for a Driver's
Test Center by the State. This entire quadrant is guided LB. There are also three single
family residences included in this LB designated area. The property is zoned A
(Agricultural).
The SW quadrant of this node contains both Amoco and Super America stations, as well
as a delicatessen /catering hall. The remainder of Oak Cliff 7th Addition is slated to
develop with a mixture of retail and service oriented businesses. All of the existing and
future planned businesses are designated NB on the Land Use Guide Plan map. There is
a 7 acre strip of vacant property that abuts Cedar Avenue just south of the Amoco station.
The property is both zoned and guided for LB uses within the Winkler - Jackson PD.
This node is generally defined by the crossroads of Cliff Road and I -35E. This area is the
2 APPENDIXA
(b)
second largest retail /commercial node in the Qty of Eagan. Large scale retail and
commercial development in this area began in the late 1980's, and more moderate retail and
service development has continued into the 1990's. Due to it's larger scale, this node has
been divided into sub - categories which are listed below:
Cliff Lake Center - This area is located at the NW quadrant of I -35E and Cliff Road.
It contains Cliff Lake Center, a large retail /commercial strip center, as well as a bank.
There is one 17 acre outlot remaining adjacent to Cliff Lalce Center. This outlot is
zoned for commercial development, and designated CPD on the Land Use Guide Plan
map.
Park Center - This area is located just to the west of the Cliff Lake Center property. To
date, the area contains a fast-food restaurant and a video store. The remaining lot and
outlot are designated within the Park Center PD Agreement for retail development. The
property is guided CPD.
Rahncliff Crossing - This area is located at the SW quadrant of Cliff Road and I -35E.
It contains a retail strip center, an automotive strip center with a gas station, a bank, a
restaurant, and a hotel that is currently under construction. The undeveloped property
remaining in the quadrant is designated within the Rahncliff PD Agreement for future
restaurant, retail, and office development. The majority of the property is designated
CPD on the Land Use Guide Plan map, with the exception of the automotive strip
center, which is designated RB.
Radler Park - This area is located just west of the Rahncliff Crossings property. The
property is zoned for a Planned Development and has only been developed with a
drugstore to date. This area also contains the old Western Court Services building,
which is currently vacant. This building is designated within the PD for a future medical
clinic. The remaining two vacant lots are designated for Class I restaurants. This
property is guided CPD on the Land Use Guide Plan map. Just south of the Huller
Park PD there is a strip of property, Outlot F of Rahn Ridge Addition. This property
is still included in the expired Mission Hills Planned Development, and is both zoned
and guided for LB uses.
Galaxie Cliff Plaza - This area is located in the SE quadrant of Cliff Road and I -35E.
To date, the property contains a realty office and a medical clinic. The remaining
property consists of nearly 18 acres of vacant land that is zoned for LB uses within the
Planned Development The property s guided LB on the Land Use Plan map.
The property in the NE quadrant of the node is designated for Public Facility and
Residential uses.
,OEff/'Thomas Lake Road
This node is generally defined by the NW quadrant of the intersection of Cliff Road and
Thomas Lake Road. This property contains Thomas Lake Center, which is a retail /service
strip center anchored by a drugstore and a hardware store. A gas station /convenience store
is located next to the main center. There are three vacant lots remaining in this
development, totaling nearly 3 acres and zoned for CSC /GB uses. There is also one outlot
just to the north of the center that contains roughly 15 acres of vacant property. This
property is also zoned for CSC /GB uses. All of the aforementioned property is designated
for CSC uses on the Land Use Guide Plan map.
This node is generally defined by the intersection of Diffley Road and I -35E.
The NE quadrant contains only property guided for low density residential uses.
The NW quadrant is occupied by Blackhawk Plaza (a retail strip center) and a gas
station /convenience store. There are four vacant platted parcels remaining in the
development that are both zoned and guided NB. These properties total roughly 35 acres.
There is also one 3+ acre vacant platted parcel which lies just to the east of Blackhawk
Plaza, between the strip center and I -35E. This property is both zoned and guided for RB
uses.
The SE quadrant of the node contains a strip of vacant property that is both zoned and
guided for RB uses. This property is located on the south side of Diffley Road, and
comprises nearly 10 acres.
The SW quadrant of the node contains only residentially guided property.
Diffley/Pilot Knob Road
This node is generally defined by the intersection of Diffiey Road and Pilot Knob Road.
The NE quadrant of this area contains Hilltop Plaza, which is a strip retail /commercial
center, a PDQ gas station /convenience store, and a daycare center. The property is both
zoned and guided for NB uses, and there is no vacant commercially designated property
remaining.
The NW quadrant of the node contains Knob Hill Professional Park, This development is
part of the Knob. Hill Planned Development, a portion of which was recently removed from
the PD to create the Signal Point development which consists of single family development.
The developed commercial lots in Knob Hill contain an office building, a dentist office, and
an animal clinic. There are two vacant platted lots remaining, consisting of just over two
acres of undeveloped property. These lots are designated for commercial development.
4 APPENDIX A
•
This property is zoned PD, and designated on the Land Use Guide Plan map as LB.
The SE sad SW quadrants ofthis node contain only property guided Residential and Public
Faci ity.
itaingilaiNtla
This node is generally defined by the intersection of Lexington Avenue and Diffiey Road.
The NE, NW, and SW quadrants of this area contain no commercially zoned or guided
Properties.
The SE quadrant of this node contains a strip retail center that is anchored by a gas
station /convenience store. There is nearly 18 acres of vacant property remaining in three
outlots of this development. These 3 outlots are zoned CSC within the Planned
Development, and are guided CPD on the Land Use Guide Plan.
This area was identified as a major retail node in the base future scenario of the 1988
Laventhol & Horwath Commercial Market Analysis. However, since that time,
approximately 50 acres within this node have been redesignated from commercial uses to
single family residential.
DiffieY/HighwaY 3
This node is generally defined as the intersection of Diftley Road and Highway 3. The NE
and SE quadrants of this area are located in Inver Grove Heights.
The SW quadrant of this node is designated D-II on the Land Use Guide Plan map, and
is currently developing as the Hawthorne Woods Additions.
The NW quadrant contains property that is currently zoned A (Agricultural) and GB. The
entire area is designated on the Land Use Guide Plan map as NB. The property contains
one storage fealty, one storage /office facility, and a Class I restaurant. There are 12 acres
of vacant commercially guided property remaining in this node.
Yankee Doodle Road/Pilot Knob Road
This node is generally defined by the intersections of Pilot Knob Road and I -35E with
Yankee Doodle Road. Retail development began in this area in the mid- to late 1970's, and
has continued into the 19901. This area was designated as a major retail node in the 1988
Laventhol & Horwath study, and the same appears to be true today. This is the largest
retail /commercial node in the City of Eagan. Due to the large scale of this node, it has
been divided into sub- categories which are outlined below:
9'Neil and Lance Planned Development - This area is located at the NE quadrant of
APPENDIX A 5
510
Yankee Doodle Road and I -35E. The property is vacant and unplatted to date. This
entire area, approximately 130 acres total, is contained within two Planned
Developments. The property is zoned PD and guided CPD on the Land Use Guide Plan
map. According to the PD Agreements for these properties, the area is designated to
develop with a mixture of LI, RB, CSC LB, and NB.
Town Centre - This area contains the bulk of Eagan's retail/commercial development,
and is located in the SE quadrant of I -35E and Yankee Doodle Road This area
contains several retail/commercial strip centers, restaurants, offices and the lice, as well
as Wal -Mart and Rainbow Foods. There are 70.25 acres of vacant property within this
sub -node. However, approximately 33 acres of this currently vacant property is either
in preliminary or final plat stage. The remaining 35+ acres in this sub -node area are
zoned CSC CSC PD, RB PD, LB PD and GB PD. The property in the Town Centre
70 location (west of Denmark Avenue) is guided CSC, and the Town Centre 100
properties area (east of Denmark Avenue) guided CPD on the Land Use Guide Plan
map.
Yankee SQyare - This area is located at the SW quadrant of Pilot Knob Road and
Yankee Doodle Road. Commercial development first began in the mid 1970's, and
today the area contains a retail strip center, a bank, a hotel, restaurants, offices, and
automotive fuel and service stations, as well as Rasmussen Business College. There is
only one parcel of commercially zoned and guided property remaining; it is north of
Rasmussen, and is both zoned and designated on the Land Use Guide Plan map for LB
uses.
The NW quadrant of the node is not characterized by one particular development. It is
located in the juncture of I -35E, Pilot Knob Road, and Yankee Doodle Road. The area
contain Norwest Bank, a medical clinic, the Eagan Athletic Club, an office building, and a
pending medical clinic. There are 5 vacant platted lots in this sub -node, totalling nearly 10
acres. These vacant properties are zoned for GB development, and designated on the Land
Use Guide Plan map as LB.
Duckwood/Pilot Knob Road
This area is generally defined by the intersection of Duckwood Drive and Pilot Knob Road.
The NE quadrant contains the Town Centre area, which has previously been discussed.
The NW and SW quadrants contain two gas stations /convenience stores, a Class I and Class
II restaurant, and a medical clinic. There is one vacant outlot north of Phillip's 66 that is
zoned for GB within a Planned Development. This vacant property is also designated on
the Land Use Guide Plan map as GB. Additionally, there is also one 9 acre parcel in these
quadrants that is currently zoned A, but is designated on the Land Use Guide Plan map as
LB. There is a pending application to rezone this parcel to R -M.
6 APPENDIX A
The SE quadrant of the node contains a Class II restaurant, a daycare, a bank, and three
retail/commercial buildings. This property is both zoned and designated on the Land Use
Plan map as CSC. The bank and the only vacant lot in the quadrant are contained within
the Pilot Knob Properties PD, and are designated on the Land Use Guide Plan map for LB
uses. The vacant parcel encompasses nearly 4 acres, and is not designated for any specific
use within the PD Agreement.
Yankee Doodle /Cbac *nAn Road
This node is generally defined by the intersection of Coachman Road and Yankee Doodle
Road. The NE quadrant of this area contains a strip retail /commercial center, anchored
by a gas station /convenience store, as well as a carwash, a daycare, an office, and a Class
I restaurant. In this quadrant there is also an unplatted parcel containing nearly S acres.
All of the aforementioned properties, both developed and vacant, are designated on the
Zoning and Land Use Guide Plan maps as NB.
The NW quadrant of the node contains a mixture of service commercial development,
including a funeral home, a realty office, and a scuba shop. There are two undeveloped,
platted parcel in this quadrant, totalling approximately .7 acres. These properties, like the
rest of the commercial property in this node, is both zoned and guided for NB development.
The property south of Yankee Doodle Road, in the SE and SW quadrants of the node is
zoned PF and A, and guided for PF and D -III development.
Lone Oak/I -33E
This node is generally defined by the intersection of I -35E and Lone Oak Road. In the NE
and NW quadrants of the node, all property is designated on the Land Use Guide Plan map
as IND (Industrial). The SE quadrant of the node contains the Eagandale Center Industrial
Park #9 Planned Development. This PD was rezoned from LI and GB to RB in 1987, and
no development has occurred on the property to date. The six vacant lots, which total
nearly 8 acres, are designated within the PD Agreement for a Class I restaurant, a 123 -room
hotel, office and retail development. The two remaining lots were originally intended to
provide parking for these facilities. The property is designated for Industrial development
on the Land Use Guide Plan map.
The property in the SW quadrant of the node contains a Residence Inn hotel, as well as
retail /commercial strip center. There are two vacant outlots, one of which is designated
within the Land Use Guide Plan map for CPD uses. This outlot lies directly adjacent to I-
3SE and Lone Oak Road and is zoned a for a combination of GB and NB uses. The other
vacant outlot lies just to the south of the hotel, also along I -35E, and is zoned for R-4
development. This outlot is designated on the Land Use Guide Plan map for LB uses.
newly 4c_and Highway 149
This node is generally defined by the intersection of Highways 149 and 55. The only
commercially designated or zoned property lies within the V made by the intersection of
the two highways. This property contains a Fina gas station, T.V. Service Labs, a
construction company, and several residential dwelling units. The Fina station and the
construction company are both zoned and guided GB. There is a single family residential
home in this area, it is designated NB on both the Zoning and Land Use Guide Plan maps.
The property containing T.V. Service Labs is zoned for a combination of NB and GB
development. This property is designated on the Land Use Plan map for NB development.
Blue Gross /Blue Shield
This node is generally defined by the intersection of Blackhawk Road and Highway 13. The
bulk of this property is owned by Blue Cross/Blue Shield, and houses their corporate
headquarters. The property is contained within the Blue Cross Planned Development, which
was created in 1981. The nearly 50 acres of vacant, unplatted property is designated for LB
development within the Land Use Guide Plan map; the PD Agreement designates the same
property for a mixture of LB and low- and medium - density residential uses.
In this node, there is also a parcel containing just over 5 acres that lies to the southwest if
the Blue Cross PD. This vacant, unplatted parcel is also guided for LB within the Land Use
Guide Plan map, but is zoned for NB development.
Pilot Knob Road/I -494
'This node is generally defined by the intersection of I-494 and Pilot Knob Road. Only the
south half of this node lies within the City of Eagan boundaries. This entire commercial
area is comprised of four Planned Developments, with the exception of one small parcel.
The SE quadrant of the node contains the Compri Hotel PD, which is occupied by a hotel.
There one vacant parcel within this PD. This 1.67 acre parcel was originally intended to
develop as a Class I restaurant, but no development has occurred on the site to date. Both
of these parcel are zoned for RB PD, and designated for CPD on the Land Use Guide Plan
map.
Also in the SE quadrant is the Eagandale Office Center PD. This PD contains just over
20 acres of vacant, platted property. There is one occupied lot within the PD that contains
an office building. In the PD Agreement, this property is designated for RD and L1 uses,
but for general office only (no manufacturing). This property is designated on the Land Use
Guide Plan map for R & D.
The SW quadrant of the node contains two more Planned Developments; the Eagan
Woods Office Park PD and the Wyndham Corporate Center PD. The Eagan Woods Office
Park PD contains one four -story office building, as well as two vacant outlots which total 12
8 APPENDIX A
acres. These vacant outlots are intended within the PD Agreement to develop as either 2
office buildings or 1 office building and 1 hotel. This PD appears to have originally created
to allow office development within an RB zoned district. The entire PD is designated CPD
on the Land Use Guide Plan map.
The other PD within the SW quadrant of this node is the Wyndham Corporate Center PD.
This property was never platted, although the PD Agreement was executed in 1985. The
PD was originally intended to contain an 81,000 sq.ft. hotel, 172,500 sq.ft. of office
development, and 10,000 sq.ft. of retail. However, this property remains unplatted and
vacant to date.
In addition to the Planned Developments, there is as small parcel (.61 acres) just to the
south that is zoned RB. This parcel contains the Wunderbar Gift Shop. This parcel, as well
as approximately 5 acres of additional unplatted vacant Agriculturally zoned property in this
area, is designated for CPD on the Land Use Guide Plan map.
I- 494/Higbway 55
This node is generally defined by the property lying south of I-494 at the intersection of
Highway 55. This area is zoned PD, but no Planned Development Agreement exists for this
property. The PD first appears on the 1974 Zoning map, but a check of the City Council
minutes for 1973 and 1974 give no indication as to the intent of this PD. The property is
made up of various parcels, and is, for the most part, vacant. This node is designated CPD
on the Land Use Guide Plan map.
J- 494/Highway 149
This node is generally defined by the SE quadrant of the intersection of 1-494 and Highway
149. This node contains the Laukka -Beck Planned Development, in which Cray Research,
Northwest Airlines, and the Waters Development are located. Also in this node is the Cray
Research Planned Development, which is vacant to date. The Laukka -Beck PD was
formulated in 1985, the impetus of which was initially the proposed racetrack, and eventually
the headquarters of Northwest Airlines. Approximately 160 acres of vacant property
remain in the Laukka -Beck PD. The vacant property is designated within the PD
Agreement for retail, office, office/showroom and R &D development. The entire node,
with the exception of Trinity Lone Oak Lutheran Church, is designated as CPD on the Land
Use Guide Plan map.
APPENDIX A 9