HomeMy WebLinkAboutJune 3, 2003CITY OF COLUMBIA HEIGHTS
590 40th Avenue N.E., Columbia Heights, MN 55421-3878 (763) 706-3600 TDD (763) 706-3692
Visit Our Website at: www. ci. columbia-heights, mn. us
MEMBERS
Tom Ramsdell, Chair
Donna Schmitt
Ted Yehle
Gary Peterson
Phillip Baker
PLANNING AND ZONING COMMISSION
REGULAR MEETING
7:00 P.M. TUESDAY, JUNE 3, 2003
CITY HALL COUNCIL CHAMBERS
590 N.E. 40'"" AVENUE
Roll Call.
Minutes fi:om the Planning and Zoning Commission meeting of April 1, 2003.
Public Hearings:
None
4. New Business:
Case # 2003-0607
5207 University Avenue NE
Site Plan Review
5. Miscellaneous:
o
Redevelopment Articles
Adjourn
THE CITY Of COLUMBIA HEIGHTS DOES NOT DISCRIMINATE ON THE BASIS OF DISABILITY IN EMPLOYMENT OR THE PROVISION OF' SERVICES
EQUAL OPPORTUNITY EMPLOYER
PLANNING AND ZONING COMMISSION
MINUTES OF THE REGULAR MEETING
APRIL 1, 2003
7:00 PM
The meeting was called to order at 7:00 pm by Chairperson, Tom Ramsdell.
Roll Call: Commission Members present-Yehle, Schraitt, Baker, Peterson, and.Ramsdell.
Also present were Tim/lohnson (City Planner), Shelley Hanson (Secretary), and Tami Ericson (Council
Liaison).
Motion by Yehle, second by Schmitt, to approve the minutes from the meeting of March 4, 2003. All
ayes. MOTION PASSED.
PUBLIC HEARINGS
NONE
NEW BUSINESS
Case #:
Owner:
Address:
Phone:
2003-0406-Site Plan Review
Glenn Stauffacher
3825 3rd Street NE
Columbia Heights, MN 55421
(763) 788-6418
Applicant:
Rosa Architectural Group
1084 Sterling Street
St Paul, MN 55119
Parcel Address: 3929 California Street NE
Profile Tool is requesting a Site Plan Review to construct a new 19,179 square foot facility on the
property at 3929 California Street NE. The site is undeveloped and was identified as North Lomianki
Park until the City Council removed the park designation from this property in/Ianuary 2003.
The site is currently zoned Industrial. The surrounding property to the south and west is zoned and used
industrially. The property to the east across the alley is zoned and used residentially. The property to
the north appears to be open space with a few homes, and is located in the City of Fridley.
Profile Tool and Engineering has proposed to construct a new 19,179 square foot facility to house their
metal tooling and machining business. The business is currently located at 3825 3rd Street NE, and has
outgrown their existing space. The business currently employs ten people and is anticipated to add a few
additional employees in the design-build process. The owner has indicated that the opportunity to build
a new facility will allow for him to dramatically improve his business efficiency and increase production
output. In moving forward with this project, Profile Tool has been working with City staff to identify
the necessary processes and related approvals since fall of 2002. As you're aware, the City has granted
several approvals that were necessary for this project to move forward; including a recent vacation of a
portion of California Street, and the removal of park designation from the parcel formerly identified as
North Lomianki Park. The City also approved a Comprehensive Plan change from Parkland to
Industrial, which the Metropolitan Council endorsed in January 2003. The proposed construction
schedule from start to completion is approximately 5 months, beginning this spring.
PLANNING & ZONING COMMISSION MINUTES
PAGE 2
APRIL 1, 2003
The 19,179 square foot building will be constructed of painted rockface masonry block with steel bar
joists. The rock/ace masonry units will be complemented by two smooth accent stripes that extend
around the building. The building entrance area will have an EIFS (stucco) finish that will signify and
provide some visual interest to the west side of the structure. It will also be complemented by a colored
metal vaulted canopy and glass entry door with side lights. The building will feature a number of high
windows on several facades to allow for natural light into the shop space. The south and west building
elevations will have windows and doors to create curb appeal and will feature a variety of trees and
shrubs to screen the loading dock area from California Street. The proposed front fagade and front
entrance facing the parking lot project a distinct character, and maximize natural surveillance and
visibility. The total number of large anodized aluminum insulated glass windows alone is eleven, which
does not include the total number of higher moUnted windows shown on the elevation drawings.
Although the project does not quite achieve the 30% window and door area requirement for non-
residential uses, staff believes that the proposal meets the intent of the ordinance and provides what staff
considers a visually appealing structure.
Commission member Ramsdell questioned whether to enforce the 30% requirement and that he did not
like to set a precedent by making an exception. Mr. Russ Rosa, froTM Rosa Architectural Group Inc.,
passed out new renderings of the site and noted that additional windows were added to the building at a
higher level to compensate for not meeting the 30% requirement of our Ordinance. Our Ordinance
requires 30% window and door space between the two foot and ten foot height on the front of the
building facing the parking area. However, as this is an Industrial Building, this requirement .would limit
the use of the building for the machinery and racking that would be placed against the walls. The owner
wanted some natural light and has allowed for this at a higher level than our Ordinance mandates. Mr.
Rosa said the proposed plan allows for about 12% in the required 2-10 ft heighi, but by including the
higher mounted windows it comes very close to the 30% requirement. He argued that other cities do not
have this restriction in their Ordinances for Industrial Buildings as it is prohibitive to the owners.
Commission member Yehle agreed with staff and the owner in that he felt the design made a good
attempt to meet the requirement, and thereby meets the intent of the ordinance.
The loading area will consist of two overhead doors for delivery purposes. The building will consist of
approximately 2,533 square feet of office space, and 16,646 square feet of shop space. The proposed
building will be located adjacent to the existing cul-de-sac on California Street for adequate ingress and
egress, and will be served by 39th Avenue and California Street. The site traffic and loading will be
completely separate from the adjacent residential properties and will not have an entry point on the alley
side. The renderings provided included elevations of what each building side will generally look like
and the approximate height of the building. It was noted the door on the north side is only for air. It
will not have a driveway access to that side of the building. The roof will be flat and will feature an
interior roof drainage system that will catch storm water and pipe it underground to the detention pond
on the south side of the site. The rooftop venting and mechanical units will be appropriately screened
from view. It should be noted that the building will not be more than 26 feet in height, but will vary in
height from 21 to 26 feet because of the sloping topography from north to south.
The minimum front yard building setback is 20 feet and the proposed building exceeds this requirement
as it is 51 feet bom the property line. The minimum side yard building setback is 12 feet and the
proposed building exceeds this requirement as it is approximately 55 feet from the west property line.
The minimum rear yard building setback is 24 feet and the proposed building meets this requirement, as
it is exactly 24 feet from this property line.
PLANNING & ZONING COMMISSION MINUTES
PAGE 3
APRIL 1, 2003
The minimum requirements are 2 parking spaces per every 3 employees, or 1 space per 1,000 square
fcct of gross floor mca, whichever is greater. The site plan shows 20 pa~king spaces, (including one
handicap space) with the requirement being 19 spaces. The parking will be on the west side of the
building which will be considered the front side, and therefore, will have little affect on the residential
neighbors. The west and north sides of the building and the south facing loading area will feature
several wall pack lights. It should be noted that the lighting plan submitted provides details on the
footcandle measurements, which meet the City requirements for lighting intensity.
There was some discussion regarding the handicap space being located at one end of lot. Mr. Rosa
stated this was done to be code compliant with the slope requirements for such a space. Due to thc
elevations of the site and where the door is located, this is the best place to place the handicap parking
space to meet the proper slope.
The site plan proposal includes a landscaping plan, which provides details on plant and tree numbers,
locations, and species. The ordinance requires a minimum of one tree for every 50 feet of street
frontage, or a minimum of 4 trees for every onc-acre of lot area covered by buildings, parking area, etc.
The landscaping plan provided includes approximatcly 15 evergreen and ash trees measuring 6 feet in
height, 4 existing trees, as well as approximately 19 shrubs. This plan more than meets the minimum
landscaping standards established by the ordinance. A majority of the tree plantings will be a natural
buffer for the residential homes on the east side of the site, but additional evergreen trees will be planted
adjacent to the detention pond and the loading dock area. The neighbors in the area had requested a
natural buffer of trees and shrubs rather than fencing. In addition, the non-bituminous areas on the
project site will be seeded, sodded and mulched. Also, the dumpster will be located next to the loading
area, and will be enclosed as required by ordinance.
Public Works Director Kevin Hansen has reviewed the plans and his analysis indicates that on-site
surface water ponding has been proposed for the site, and meets the City storm water requirements and
well as MPCA Storm Water Permit requirements. It should also be noted that the City has requested a
ten-foot easement around the easterly radius of thc cul-de-sac for street and utility purposes. The City
will also maintain a 30 foot access up to 40t~ Avenue in case the City would ever need to reach the north
and west sides of the property for utilities or maintenance purposes.
The Fire Department has also reviewed and preliminarily approved the plans with some comments. To
note, the owner.plans on installing a sprinkler system, which eliminates a prior fire lane concem by the
Fire Department.
The proposed construction is consistent with the 2001 City Comprehensive Plan which designates the
property for future industrial use. The new facility will further enhance the tax base and create additional
good paying jobs. Thc building features varied architectural materials designed to create visual interest
and to provide consistency with the surrounding area and will provide a buffer for the residential
properties from the railroad switching yards to thc west. Therefore, staff recommended approval of the
Site Plan proposal to construct a new 19,179 square foot facility on the property at 3929 California
Street ~.
PLANNING & ZONING COMMISSION MINUTES
PAGE 4
APRIL 1, 2003
There was more discussion regarding the retention pond and whether fencing should be required.
Planner Johnson explained that Public Works does not advise fencing of these ponds due to trapping
children inside and that it limits public safety personnel from rescue attempts if necessary. He also
stated that the pond will not hold water all the time. It is only meant to alleviate problems during
ton'ential rains or wet year~. It was the general consensus that some type of planting be put around the
perimeter as necessary to deter children from playing there.
Motion by Ramsdell, seconded byYehle, to approve the Site Plan for Profile Tool and Engineering for a
19,179 square foot industrial facility on the property at 3929 California Street NE, subject to the
following conditions:
1. All required state and local codes, permits, licenses and inspections will be met and in full
compliance.
2. Final review and approval of grading/drainage, water and sewer plans by City Engineer and
Fire Chief.
3. Approved landscaping and screening shall be installed in conjunction with site development and
prior to issuance of a final certificate of occupancy.
4. Additional landscaping be added as necessary around pond area with restrictive plantings as
approved by staff.
All ayes. MOTION PASSED.
MISCELLANEOUS
There was a discussion regarding the status of the south piece of Lomianki Park. Council member
Bobby Williams stated that the Park Status had been removed from that piece of property. Commission
member Peterson stated the City Council should look at re-zoning the property if they wish to market it
as residential property.
Motion by Yehle, seconded by Peterson, to adjourn the meeting at 8:00 pm. All Ayes.
Respectfully submitted,
Shelley Hanson
Secretary
Case: 2003-0607
Page: 1
Case #:
Owner:
Address:
Phone:
STAFF REPORT TO THE PLANNING AND ZONING COMMISSION
FOR THE JUNE 3, 2003 PUBLIC HEARING
GENERAL INFORMATION
2003-0607
Todd Johnson DDS
5215 University Ave NE
Columbia Heights, MN 55421
(763) 572-8040
5207 & 5215 University Ave
General Business District
Transit-Oriented Development
Parcel Addresses:
Zoning: GB,
Comprehensive Plan:
Applicant:
James Strapko Architects
4157 Minnehaha Ave So
Mpls, MN 55406
(612) 729-4112
Surrounding Zoning
and Land Uses:
Zoning
North: General Business
South: General Business
East: Residential
West: Residential
Land Use
North: Commercial
South: SF Home
East: Residential
West: Residential
BACKGROUND
Explanation of Request:
This is a request fxom Dr. Todd Johnson and James Strapko Architects for Site Plan Review to
construct a new dental facility on the properties at 5207/15 University Avenue NE.
Case Histor},:
The site is undeveloped and consists of three platted parcels.
ANALYSIS
Surrounding Properq~:
The surrounding property to the north is used and zoned commercially. The property to the east
across the alley is zoned and used residentially. The property to the south is a single-family
home and is zoned Commercial.
Case: 2003-0607
Page: 2
Technical R~iew/Design Issues:
Dr. Todd Johnson owns 5 lots south of the City Liquor Store on 52~'d and University Ave. He is
proposing to move out of his current building at 5215 University Avenue. He plans to construct a
new 3,416 square foot dental facility on the three adjacent empty lots he owns, in order to
accommodate the growth of his practice. Dr. Johnson is proposing to split off the northerly two
lots which house the existing dental office and parking area. The current business employs a few
workers and is anticipated to add additional dental hygienist employees in the design-build
process. In moving forward with this project, Mr. Johnson has been working with City staffto
identify the necessary processes and related approvals since 2002. The proposed construction
schedule from start to completion is approximately 4 months, beginning this sUmmer.
The 3,416 square foot building foundation proposed is intended to function as a commercial
office type use, but is being designed to have a residential type appearance. The building exterior
finish materials will consist of fibercement siding, which is a product composed of cement and
wood fibers that look and feel like wood. The texture of the siding is a cedar grain, which will
hold paint and also be fireproof. This material is more recognizable in other parts of the nation,
but is becoming more common in the Midwest. This material is considered a common
alternative to wood and staff believes this to be an acceptable and architecturally appealing
material. The fibercement siding, soffits, and trim will be complemented by standard residential
style windows and decorative columns at the south entrance to give it a front porch type
appearance and to provide visual interest from the street and parking area. The westerly facing
entrance will feature a projecting bay with residential style windows over the emergency exit
door to enhance the street appearance.
The building will feature a number of window and door openings on the facades facing
University Avenue and the parking area, to allow for natural light and security, and provide some
visual interest for the building. The south and west building elevations will have windows and
doors to create curb appeal and will feature an asphalt shingle that is made to convey a cedar
shake appearance. The proposed front facade and front entrance facing the parking lot also
project a distinct character, and maximize natural surveillance and visibility. The project
achieves the 30% window and door area requirement for non-residential uses. The renderings
provided include elevations of what each building side will generally look like. The building will
consist of several offices, a chart room and library, and seven patient rooms. The building will
also feature a small basement area for mechanical units and storage, as well as a private office in
the upstairs attic.
Non-residential building setbaei~:
· Minimum front yard building setback is 15 feet; The proposed building meets this
requirement as it is 19feet from the property line. l~rhile the building foundation is set
back at 19feet, the projecting bay juts into the setback area one foot. The ordinance
does allow for architectural enhancements to be in the setback area.
· Minimum comer side yard building setback is 15 feet; The proposed building exceeds
Case: 2003-0607
Page: 3
this requirement as it is approximately 60feet from the south property line.
· Minimum rear yard building setback is 20 feet; The proposed building meets this
requirement, as it is 20feet from this property line.
· Minimum side yard building setbactt is 0 feet; The proposed building meets this
requirement, as it is 5feet from this property line.
Parking area requirements:
Minimum requirements are one space per every 300 square feet of gross aoor area;
The site plan shows 16parking spaces,'with the requirement being 14 based on 4,050 square
feet. There is one handicapped space shown which meets the accessibility requirements. It
should be noted that the lighting plan for the parking area submitted provides details on the
footcandle measurements. These measurements meet the City requirements for lighting intensity
at a maximum of 3 footcandles of light at the nearest non-residential property line, and a
maximum of ~ footcandles of light at the nearest residential property line. The lighting for the
site includes two pole lights to be located on the southeast and southwest corners of the parking
area.
Minimum parking setbacks are 15 feet from the front and comer side property lines and 5 feet
from the rear property line; Off-street parking proposed meets the City requirements at 20feet
from the front property line, 15feet from the corner side property line, and 6feet from the rear
yard property line.
Signage requirements:
The General Business District allows for monument signage not to exceed 40 square feet in size;
a maximum of 8 feet in height; and setback 5 feet from any property line.
Applicant is proposing to erect an 8foot height monument sign, measuring 38 square feet in size,
and setback at least 5feet from any property line which meets City requirements. The wall-
mounted signage proposed for the building meets the City requirements as well. $ignage will be
verified during the permitting process.
Landscaping/screening:
The site plan proposal also includes a landscaping plan, which provides details on plant and tree
numbers, locations, and species. The ordinance requires a minimum of one tree for every 50 feet
of street frontage, or a minimum of 4 trees for every one-acre of lot area covered by buildings,
parking area, etc. The landscaping plan includes seven trees consisting of ash, coniferous
and maple varieties. In addition a variety of shrubs, river rock, wood mulch, and sod is
proposed for groundcover, as well as a landscaped curb island designed to break up the parking
lot area. The plan exceeds minimum City landscaping standards. The shrubbery proposed will be
a natural buffer for the residential homes to the east, with an additional 6foot high fence and
retaining wall to be placed along the easterly property line to provide appropriate screening. In
addition, the non hard-surface areas on the project site will be seeded, sodded and mulched (see
landscape plan). Also, the dumpster will be located on the east side of the structure, will match
the cedar.finish of the building, and will be enclosed as required by ordinance.
Case: 2003-0607
Page: 4
Access; Grading/Drainage; Water/Sewer Issues:
The proposed building will be served by 52nd Avenue and the University Avenue service road,
which should provide for adequate ingress and egress. The site traffic will be completely
separate from the adjacent residential properties and will not have an entry point on the alley
side. The new parking lot area will require a new curb cut along the frontage road, but shouldn't
generate much additional traffic.
Public Works Director Kevin Hansen has reviewed the site plan and grading/drainage plans
submitted with his comments (see attached). The applicants have submitted a plan which directs
the stormwater runoff to the University Avenue frontage road, and away from adjacent
properties. The plans proposed appear to meet the City stormwater requirements.
The Fire Department has also reviewed and preliminarily approved the plans.
Compliance with CitF Comprehensive Plan:
The 2001 City Comprehensive Plan designates the property for future transit-oriented use, which
promotes high density residential and neighborhood commercial development such as proposed.
Summary:
The aspects of this proposal are as follows:
· The new facility will further enhance the tax base and create additional jobs.
· The facility proposed features varied architectural materials designed to create visual
interest and to provide consistency with the surrounding area.
CONCLUSION
Staff Recommendation:
Staff recommends approval of the Site Plan proposal to construct a new 4,500 square foot dental
facility on the property at 5207 University Avenue NE.
Recommended Motion:
Move to approve the Site Plan for Dr. Todd Johnson for a 4,500 square foot dental facility on
the property at 5207 University Avenue NE, subject to the following conditions:
1. All required state and local codes, permits, licenses and inspections will be met and in
full compliance.
2. Final review and approval of grading/drainage, water and sewer plans by City Engineer
and Fire Chief.
3. Approved landscaping and screening shall be installed in conjunction with site
development and prior to issuance of a final certificate of occupancy.
Attachments:
Site Plan; Grading/Drainage Plans, Landscaping Plans; Elevation Drawings; P.W. Memo; Applicant Narrative;
CITY OF COLUMBIA HEIGHTS
590 40th Avenue N.E., Columbia Heights, MN 5.,..~,-.,o,owuo~..,,~,.-o,.~, ~ ~,,., ~ ,u~j ,,.-,,-.~692
Visit Our Website at: www. ci. cohunbia-heights.tnn, us Pubhc WorKs Department
TO: TIM JOHNSON
CITY PLANNER
FROM:
SUBJECT:
DATE:
KEVIN HANSEN
PUBLIC WORKS DIRECTOR/CITY ENGINEER
FAMILY DENTISTRY SITE PLAN REVIEW
May 30, 2003
I have the following comments on the Family Dentistry site plan:
· Architecture
As a general comment, I would encourage the addition of some masonry, such as
brick or stone, to frame or enhance the main building entrance.
· Site Utilities
The City does not allow a core cut into an existing'vcP sanitary line. Provide a
cut in of a new tee with proper backing in accordance with City Specifications.
The proposed storm sewer shall be a privately'maintained line.
Any work performed in public Right-of-Way shall be inspected by the
Engineering department. A Right-of-Way permit is required and can be obtained
from the City Engineering Department.
· Storm WaterManagement
As the proposal does not impact over 1 acre, a NPDEs permit is not required.
The grading and erosion control plan is acceptable with the following conditions:
1. Site access during construction should be limited to the University
Avenue Service Road.
2. The perimeter erosion control shall be placed priOr to any site
disturbance and inspected by the. engineering department.
3. Any debris tracking shall be cleaned offofpublic streets within a 24-
hour period. If the work is not performed within a 24-hour period, the
City of Columbia Heights will clean the' streets and bill the Contractor.
4. The rear retaining wall along the alley should be three feet from the
property line.
5. The gutter line at the main entrance il flat. This should be reviewed in
the field with engineering staff prior to concrete placement.
THE CITY Of COLUMBIA HEIGHTS DOES NOT DISCRIMINATE ON THE BASIS OF DISABILITY IN EMPLOYMENT OR THE PROVISION OF SERVICES
EQUAL OPPORTUNITY EMPLOYER
CITY OF COLUMBIA HEIGHTS
590 40th Avenue N.E.. Columbia Heights. MN 55421-3878 (763) 706-3600 TDD (763) 706-3692
Visit Our Website at: www. ci. columbia-heights.~nn.us
Memo to Tim Johnson
Family Dentistry Site Plan Review
Page 2
· General
I would recommend a small cash escrow of $ !,500 for engineering
inspection and erosion control surety. Any unused portion of this escrow
will be returned to the owner upon project completion (defined as turf
establishment and parking lot paving).
Transportation
The main entrance shall have a concrete apron from the curb to the property line.
The location of the driveway cut is acceptable. No site access should be provided
to the existing alley to the east.
If you have any questions or need additional information, please contact me at ext. 705.
K .'jb
THE City OF COLUMBIA HEIGHTS DOES NOT DISCRIMINATE ON THE BASIS OF DISABILITY IN EMPLOYMENT OR THE PROVISION OF SERVICES
EQUAL OPPORTUniTY EMPLOYER
JAMES A. STRAPKO, ARCHITECT, LTD.
4157 Minnehaha Avenue South, Minneapolis, MN 55406 (612) 729-4112 fax: 729-4831
Site Plan Review Application
Professional Office Building
Todd Johnson, DDS
Narrative
Dr. Todd Johnson is the owner of five adjacent lots at 5215 University Avenue NE. Currently his dental practice
occupies a building and parking on two of the lots at the north end of the parcel. Dr. Johnson has provided dental care
to the surrounding neighborhood at this location for over 20 years. To accommodate the growth of his practice, he
intends to develop a new building along with associated parking and landscaping on the south three lots. His intention
is to create on office and landscaping with a residential appearance.
Existing vegetation on the south three lots., includes grass and four trees. Two cottonwoods and one poplar
would be removed and a large ash at the southeast corner would be preserved. The landscape plan illustrates a
combination of trees, shrubs, and fencing. Techny Arborvitae, coniferious shrubs, and fencing at the east property line
are designed to screen the parking area from residential properties across the alley to the east. In addition, the
elevation of the parking is lower than the alley, requiring a retaining wall, which provides additional screening.
Marshall's Ash, a street tree, is proposed in a group of three along the south property line. These will shade the
parking and coordinate with the existing ash at the southwest comer. A single Royal Red Maple located at the
entrance drive near the building entrance would provide seasonal color. Black Hills Spruce, a dark green conifer tree,
will provide some wind and sound screening at the west property line. The pryamid shaPe of the spruce will repeat the
steep roof slope of the west gable and the dark green will contrast with the lighter colors proposed '/or the building.
Blue Chip Juniper, a Iow conifer shrub, is proposed around the base of the monument sign at the southwest corner of
the site. The blue-green color of the juniper will complement the dark red foliage of the nearby Royal Red Maple.
The surrounding neighborhood is a mix of building types and forms. The proposed building is designed to present
a residential image, with intersecting gable roofs, residential windows and doors, and residential siding. The north face of
the building must have a fire-rating required by the State Building Code. Here, glass block is proposed in the shape of
typical residential windows. Windows on the other faces of the building are standard residential metal clad wood. Window
areas comply with the zoning ordinance. On the south fa(~ade, window and glazed door unit comprise 30 percent of the
main level wall; on the west, they comprise 31 percent. The roofing is asphalt shingles, the siding fibercement.
Fibercement is a relatively new product composed of wood fibers combined with cement in boards and shingle panels
that look and feel like wood. The texture is a cedar grain. In contrast to cedar siding, fiber cement is stable, fire-proof, and
will hold paint much longer. It is becoming a common alternative to wood in quality homes.
Traditional columns at the entrance are designed to give it a front porch appearance. To meet the practical needs
of access from parking, the public entrance is located on the south; however, the west wall facing University Avenue is
also designed as a street facade. The emergency exit door is sheltered under a projecting bay. The bay houses an attic
office for the building owner. Wall signs on the west and south faces are integrated with the style of the building, taking the
shape of arched windows.
Dr. Johnson has not yet made final color selections. His general intention is to create a building with light, warm
colored siding (probably a tan), complementary window and trim color (possibly darker than the siding), and medium dark
roof for contrast.
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PROFESSION~ OmCE BUIm~G ~er: Todd lo~son, DDS ~DS~E P~ ~/,,/~ PS~m~V J~ES A. ~K0, ~CHI~, L~.
Family Den~s~ ~/ff~ NOT FOR ~s ~ ~s
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PLAN
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~"~ PR0~SSION~ 0m~ BUI~INO Owner: Todd 30~o., DDS a~lSO · W~ ~S ~,,4. ~em.m~Y DENNIS E. BROWN, P.E.
Fami~ Dentis~y N~ FOR
CON~U~0N
UnI~ k~nue NB
Cotumbtl He~h~, ginnm~ Br~l~ ~n~, ~ ~ ~-~-4~
DAVID STAUFFER
America's f:rst-tier suburbs--a/so referred
to as older, inner-ring, and first suburbs--
have attributes that distinguish them fi'om .
the central cities that most of them border and the
newer, outer suburbs that they adjoin. Like big
cities, they tend to have vibrant downtowns, but
on the smaller, more intimate scale associated with
suburbs. Their homes are usually more affordable
than those of the cen~'al city and are more Ulcrdy
than outer suburban homes to be within walking
distance of schools, recreation centers, and stores.
[n Light of theLr impact on real estate redevelop-
ment, the question is whether these distinctive
attributes constitute a treasure trove of attractions
or a Pandora's box of drawbacks. "I see a lot of
value in them~and lots of headaches for sure;' ~
says planner Kelley Hrabe, a supporter of rede-
velopment and infill in older suburbs, and cl~rec-
tor of project development for Walton Construc-
tion, a Kansas City, Missouri, general contractor.
Another believer tn restoring the izmer sub-
urbs is Steve Van Amburgh, CEO of the Dallas-
based KoLl Development Company, who, at the
same time, laments that they offer few or no
opportunities for his customer base--the large,
corporate build-to-suit market. ~ralk to any cor-
porate real estate department and you'11 find there
are compelling reasons why they decide to build
where they do," mostly on exurban greenfield
sites, he notes.
While the advisabLUty of venturing into first-
tier suburban redevelopment is a topic of debate
among man), in the industry, there is Little or no
argument that America's older suburbs deserve re-
vitalization. "For me, the appeal includes a rela-
th, ely short commute, the physical beauty of the communi~ a quaint
sn~a11-~i)wn f~el, good schools, and the ability to waLk downtown;'
s~ys ~-~bert A. Marchman, a vice president of the New York Stock
Exchange and chairman of the South Orange--Maplewood, New Jer-
sey, Community Coalition on Race, who moved to Maplewood in
1991. loan E. Primo, a principal of real estate and retail consultants
partnership is
critical for
successful
first:bbr
for the h,~;h.fe~sib to~nhou~
c(mimum~ Madison ~ace.
the Strategic Edge in Southfield, Michigan, agrees. "We're finding
tha. t the customer really craves that downtown expe.__fien--~e" of first-
tier suburbs, she says."That, plus the sense of community, are very
im'po~nant to many p~ple:'
In addition, the hybrid nature of fu'st-fier suburbs--with some
qualifies of central cities and other characteristics of outer suburbs--
· .' ./~me 3,000 acres are being redeveloped as a new
,i" ¢' ommuni~ in t~e inner suburbs of NortJ~ Charleston,
Sout~ Carol,n~, ~n ami chosen for its ciose-~n location,
lower housing price costs compared with Chari~kon and
farther-out suburbs, and the workday net in-mi~at~ of
can present appealing market opportunities. The most
recognized of these is their attractiveness to a~lu~nt and
gro~g popu3au6n~ ~Peci~-y empty-nest boomers
and young professionals--who seek easy__ access to
big-city ameniti~ 5v~iout _th~a~crlc pace and higher
costs of in-town living. ~We're consistently seeing un-
derserv~ in the inner suburbs,~ says Ray
Utw. nhove, a senior vice president and retail team clirec-
tot in the Atlanta o~ce of the commercial real estate ser-
vices ~ CB Richard F.111~.
Demographics are not the only thing propelling the
first-tier comeback, according to zoning and land use
attorney Carl E. Westmoreland, a partner in the Atlanta
firm of Powell, Goldstein, Frazer & Murphy. For an in- "~
creasing number of people, he says, an exurban residence
is too far ~om the workplace, so they are moving toward
metropolitan centers to improve their lifestyle. ~The
market is finally compelling them to do what planners
could never do; he maintains.
The inner suburb's ~just right" location--neither too
far ou~ nor"to~ f3/'in--is a key advantage, as is the"eco-
nomics of the area, which, in some locations, can give you a major
price-point advantage," says Iohn Knott, Ir., president and CEO of
the Noisette Company. Knott, whose company is redeveloping 3,000
acres of North Charleston, South Carolina, explains that the mean
price of a home there is well below that of houses in Charleston
and adjoining, farther-out suburbs. ~So we start with location and
market advantages, and add to that the workday net in-migrati~)n
of some 100,000 commuters. Assuming most people would like to
live near where they work, we stand to capture a share of that; he
observes.
Still, inner suburbs face challenges. ~It's not an automatic that
the infrastructure is in place; points out Gary Garczynski, presi-
dent of residential developer National Capital Land & Develop-
ment Company ofWoodbridge, V'zrginla. Even when infrastructure
is in place, the pa~age of time often has taken a toll, he a~a~, citing
one builder who found waterlines rr~de of wood.
Unlike most central cities ana outer suburl:~vdose-in suburbs
tend to have neighborhoods that are long established, cJose knit, and
relativ~'si~le~'Those quaJ~ties are genera~y thought ot as posifive~
until a redevelop~fient project is proposed for such a neighborhood.
~These people may not be as accustomed to change as those with a
more [outer] suburban mindset," now Westmor~and."They bought
their halt'acre in 1975, and why should anything change?" is how
many of them feel, he says. ~We as developers and designers typi-
cally create our own problem," comments Knott. When the first an-
nouncement of a company's planned project includes an unveiling
of the plans, no matter how conceptualized and removed firom what
might eventually be built,"we're regarded as imposing o~ views of
what their lives should be."
That sort of impression can be avoided through community
meetizigs that precede development, notes Steve Burkholder, mayor
of Lakewood, Colorado, and chairman of the newly formed First
Tier Suburbs Council of the National League of Cities. He rites as
an example the opening of a retail mall in Lakewood."The devd-
oper did a lot of public relations work in the neighborhoods, but
you've got to go out and talk, stand up for what you believe in," he
insists. The key to minir~i~ing neighbors' objections is ~building
the case," concurs Michael L. Cantor, a partner in the consulting
~-----Allegro Realty Advisors, Ltd., in Independence, Ohio.'Get out
and talk about past successes. Show actual impacts, such~fore-
and-after traffic counts and property values; he advises. Extensive
community involv ..e47nent along these lines almost always requires
m~e time and effort than wo_gld.be.required for development in
exur~greenfields or even in inner cities, where often there are
fewer surrouhding residents, an--'---~ they ~ mor~i'en-rand more
accustb-xh-~/t to re-6-~-d-~opment. "These processes~tructures are
mesij,,~b-'~e-aes-Tl~fll'~nes, director of research and municipal
prograins at the National League of Cities. "But what's crucial is
that they allow a struggle to emerge. That's okay--it's called poli-
tics: It is a means by which issues eventually get resolved, he says.
U r b a n L a n d March 2003 79
The outed-ring suburbs am home ~o companies lo~king for Class A offl,~
space, ~uch as t~e Intuit, Inc., offices in tim Dallas-ama suimrb of West
Piano, Texas.
However, government processes that move at one-haif or one-
third norr;nal speed are a concern, maintains Robert C. White, St.,
CEO of Marietta, Georgia, residential developerfouilder Venture
Homes, Inc."I think we need change, for example, in the way most
re'zoning is done," he says. A fine line divides beneficial process fi:om
wasteful bureaucracy' in gaining approvals for inner-suburban
projects, points out Russell Lamb, a principal of Allegro Realty
Advisors. "For any required step, government representatives may
see usefulness where developers see uselessness,~ he notes. "Go__~._v-
eminent should always try to reduce impediments---and devel-
opers should similarly make allowances for public processes;'
Redevelopments and inflll projects generally present fewer regula-
tory hurdles, says ]ames ]. Garibaldi, Ir., president and CEO of J'BG
Rosenfeld Retail Properties, a Bethesda, Mar) la.nd, company that
specializes in retail redevelopment. "I think that, on balance, they
are a little easier to work on than some greenfield projects," says
Garibaldi. ~Usually, whatever is there, or was there, is old and out-
dated, Government and the neighborhood tend to want something
new and different.
Complex, m~_~._~c.ete..d financial structures are common in, and
often essential to, making first-tier suburban redevelopment projects
viable. "There's no template for making [the deal] happen;' says
Burkholder."_Fa_ch one is different from all others;' And private partic-
ipants would do well to recognize that public oflflcials face different
business considerations than do developers. "The~ too, have their
equations that determine if a project makes economic sense; says
Max Friedman, a parmer in the New York law firm of pillsbury
Winthrop LIP, who specializes ia real estate and redevelopment.
"But they're not the same equations as on the private side."
Fur~er complicating; financial arrangements is the need for
diverse private players to think beyond their more conventional
central city and outer suburban projects. For ~ample, retailers may
have to rework their prototypes, Garibaldi explains, perhaps ac-
cepting a lower parking ratio, or going to a multistory format or a
smaller concept if space is constrained, The demographics o f inner-
suburban markets often do not fit the traditional retail customer
models, but that does not necessarily mean that they lack dour,
points out retail specialist Maranda Walker, in CB Richard Ellis's
Atlanta office. ~Their diversity can be a strength;
~ One thing officials and staffs of inner-suburban jurisdictions
hope is understood by afl private sector participants in redevelop-
ment and infill projects is that even a small project involves more
than putting_up structures and meerin~ revenue projections."The
issues aren't just development and redevelopme.nt, but all of the is-
sues around quality of life," says Barnes. "Any project isn't just a
matter of a good design for a good project, but a vision for the com-
munity as a place in a re,gion."
Public officials and staff members have at least as much of an
obligation as do private sector players to make redevelopment and
.inflll projects work. In many instances, they may face their biggest
challenge at the starting gate."This is unfimiliar ~round for subur-
ban oflicialg accordin~ to an ar~de in Governingmaga,~e ('After
the Mall," October 2002)."Most are t~oo ffrnid~-scale
redevelopment... ~and will wait for developers to present their own
~Former Indianapolis mayor W'dliam H. Hudnut Iff, senior
resident fellow at the Urban Land Institute, believes public officials'
inaction stems less often fi:om timidity than from discouragement.
"Some o~'~them have only seen development moving out;' he says.
Hudnut, author of ULI'S upcoming book Halfway to Everywhere: A
Portrait of Arnerica's ~'rst-Tier Suburbs, recalls a meeting severalyears
ago with the mayor of a first-tier suburb. ~He gestured with a wave
to the town's main street outside his window and said, 'The state
can't afford to repave our main street, but they can find $500 mil-
lion to build an interstate exit 15 miles farther out.',
Inner-suburban officials should be aggressive in responding to
such inatte ~on, Hrabe says. With__mmost growth moving outward,
and state and federal assistance progra~_ aim~efly at central
ciries, the first~rier suburbs are at a disadvantage, he says.'But th______ey
need to ask, what are the opportunities? Old housing stock that's
often superb, old downtowns that are attractive--it comes down
to ea.c~ community and its unique strengths." To~g~Zab private sector
attention, those strengths might be expressed'as part of a business
planm 'getting business by being more businesslike;' Hr-abe says.
Governments also would do well to seek a broader range of proj-
ects than ~big-flx" megaprojects, such as b. aflparks and festival mar-
ketplaces, according to Kennedy Smith, director of the National
Main Street Center of the Washington, D.C.-based National Trust
for Historic Preservation. Existing shops and current residents often
are better served by incremen~6p-'rh'-e~T,',, she contends, such
as the progressively more ambiti~ projects that have revived Blue
Island, Illln~is_,, a ciq ..sg-m suburb of Chicago.
A critical aspect of public officials becoming more businesslike
is thei~ recognition of the financial realities of most inner-suburban
redevelopment projects. Two realiti.._.~es that often play.a role in de-
terrgining if projects come to fi:uition are whether the public partic-
ipates in the financing and acceptance of risk, and whether there is
a possibility for a higher-than-average, [ong-te~'m ret't~/n'~'o--~private
investors. Tax increment financing
and oth~"-"'er public funding can help
level the playing field between first-
tier and greenfield development,
says Hrabe.'Some suburbs are too
proud: they say only [central cities
accept public funding] because
they're dilapidated. But without in-
centives, the developers will usual-
ly ha_..~ to go els~?here.~Absence of
incentives may not always send de-
velopers elsewhere, points out
Garczymki, but usually it will mean
that a residential project will consist
only of higher-priced homes.
Financial participation by the pub-
lic sector is not n~_~,'ily required,
he says. Instead, publi..c officials can
allo~-higher density for a devel-
op'~'~nt or can echexp_e~_'.!.~rocessing
"so there's not~ rezon-
ing before a builder scratches dirt,"
Some publi~ Offlclak se~n not to
und~d..~.~ between invest-
and re__re_...~turn.~The public and their
representatives need to better un-
demand that while these projects
can provide a healthy return over
time, that's not unfair given the lev-
el of risk going in; notes Friedman. There are "~c ex~e~a-
lions of what the public side thinks the private side should invest?
laments real estate finance and development attorney Jay I. Levin,
also a partner in the Atlanta firm of Powell, Goldstein, Frazer &
Murphy."It's easy to spend other people's money.~ At the same time,
'! Garibaldi says he wishes that public oiticia!.~ and the citizem they rep-
i resent had a greater appreciation of what developers cannot do. For
!example, 'We don't have access to unlimited project funds, and we
!:,don't have every national retailer in line for these projects from whom
Iihey can pick and choose? he notes.
Opposition to change in the status quo is a common hurdle for
developer~."We tend to have lots of people in first-tier suburbs who
are long-term es'l~'~dents who understandably wish to have what used
to be," says Burkholder. Bur"what used to be" can stand in the way
of what is best for today, he says. ~Some people will say they want a
guarantee df keeping existing zoning, with rain/mum lots of 8,000
square feet," explains Burkholder. Opposition to high density, he
notes, is one of the biggest challenges---an o~-imon that prevails
among public and private sector
players alike./oseph Lengeling, a
principal of Magnus.son Architec-
ture and Planning in New York
City, urges public officials and
private interests to preach density's
benefits. ~It brings better services,
more socially-lng, and better bottles
of wine; he points out. Nonethe-
less, "two things Americans most
hate are sprawl and .density--we
find it to be true all the time,"
Garczynski says. "Some officials
and county smfl-~ do lots of preach-
ing about smart growth, and then
resist density. They use the term
'smart growth' on their own terms,
and man~ of thdr constituents do,
tool' he adds. ~All the talk about
smart growth is left at the door
when neighbors pack the room
for a. rezoning hearing,' concurs
Westmordand.
That means officials who stand
u?~for their principles can ~ a
decisive .difference when they
demonstrate the "?olijcal will to
fa~--the inevitable controversy;' says
Urange Count, Calilbmia, land use
attorney 'I~un Paone, with Manatt,
Phelps & Phillips. Garczynski re-
lates that for one inflll project,"we had make-or-break support from
the countT supervisor who represents that area. She went into the
surrounding neighborhoods and personally sold the idea." Today,
"where we had seven homes, four of them abandoned, we now have
nearly 200 townhomes priced quite affordably for that community:
That outcome, Garczynski says, is for him an ultimate goal of re&vel-
opment and inflll in fu'st-tier suburbs.
Such fu-st-tier suburban development is possible if private sector
player.~s join with their public sector cgunterparts"in true partner-
ship.., with an absolute feeling of mutual trust," says Burkholder.
Such relationships, Hudnut contends, may' characterize the way
development will be conducted in the new century to accommodate
growth. "I believe we may be moving from an old paradigm [of
greenfield development] to a new paradigm of restorative devel-
opment? he says. "We need it." ·
DAVID ST. AI/TI:ER IS A RED LODGE, MONTANA-BASED BUSINESS AND ECONOMICS
..' Urban Land March 2003 81
· The Twin Lakes Redevelopment Project: A Case
Study in Residential Brownfield Redevelopment
by Jill Mazullo
The Twin Lakes redevelopment area, a large, Inner-ring suburban brownfleld reuse project located in RosL~ille, Minnesota.
Considering that the real estate
mantra is "location, location,
location," it is not surprising that
residential brownfield redevelopment is
a hard sell. Brownfields~abandoned or
underutilized industrial sites~generally
have a reputation as undesirable loca-
tions for housing because of fears about
pollution and contamination. The
assumption is that brownfleld sites are
more appropriate for commercial and
industrial uses than residential uses
because remediating the soil to residen-
tial standards can be prohibitively
expensive. City councils are loath to
commit funds to a speculative residen-
tial brownfield project. Similarly, devel-
opers like to know the market is behind
them and thus prefer to undertake resi-
dential development on cleaner pastures
rather than tackle the complexities of
brownfield reuse.
Turning a former industrial park into
a residential development raises many
questions for cities and developers: How
contaminated is the soil? How clean
would the site have to be to meet
federal and state standards? What would
such a cleanup cost? Would anyone
want to live on the site of a former
brownfield? Why not build on a green-
field site on the urban fringe where
contamination is less likely? Although a
degree of uncertainty is inherent in resi-
dential brownfield redevelopment,
many of these questions have become
easier to answer during the last decade
due to innovations such as risk-based
corrective action, new contamination
treatment technologies, an array of
federal and state brownfield funding
programs, and the evolving smart
growth movement. These innovations,
in turn, have led to an increasing
number of brownfields being redevel-
oped as housing.
Community and economic develop-
ment staff at the City of Roseville, an
inner-ring suburb of the Twin Cities, are
currently redeveloping a collection of
abandoned and polluted truck terminals
and other former industrial sites known as
TWin Lakes. The 170-acre Twin Lakes site
will be redeveloped as a mixed-use busi-
ness park and ~residential area and could
include as many as 700 units of housing
when completed. In many ways, the rede-
velopment of Twin Lakes is a microcosm
of the changing development patterns
for inner-ring suburban brownfields.
SPRING 2003 9
The Center for Urban and Regional
Affairs (CURA) and the Humphrey Insti-
tute of Public Affairs at the University of
Minnesota have complemented
Roseville's efforts to redevelop Twin
Lakes. Through CURA's Local Govern-
ment Planning Internship Program, the
city's Community Development Depart-
ment hired a series of four graduate
assistants (including myself) between
1999 and 2002 to assist with the Twin
Lakes planning process. Roseville also
worked with 13 graduate students
enrolled in a Humphrey Institute plan-
ning capstone class in 2001 to study the
city's development plan for Twin Lakes
and identify alternatives for how the
area might be redeveloped.
In a previous article published in the
October 2001 CURA Reporter, Jeffrey L.
Miller, a CURA planning intern at
Roseville from 1999 to 2000, used the
example of Roseville's Twin Lakes rede-
velopment effort to highlight the obsta-
cles to and opportunities for inner-ring
suburban brownfield redevelopment
projects. Miller's article focused prima-
rily on commercial-industrial reuses at
Twin Lakes because that was the city's
plan for this site at the time. In recent
years, market forces have changed the
focus for redevelopment on some
parcels at Twin Lakes to residential
reuses. Based on my experiences as an
intern with the City of Roseville during
2000-2001, this report uses the Twin
Lakes project as a case study of the chal-
lenges of residential brownfield redevel-
opment and offers several policy
prescriptions for encouraging such proi-
ects in other suburban communities.
Residential Redevelopment
at Twin Lakes: A Case Study
The Twin Lakes site is located just north
of Rosedale Mall and is bounded by
County Road C to the south, Cleveland
Avenue to the west, and Shelling
Avenue to the east. The site encircles the
southern end of Langton Lake. The 170
acres of land on the Twin Lakes site are
largely occupied by trucking terminals,
remnants of a declining industry. In the
1950s, Twin Lakes sat on the outskirts of
the Twin Cities metropolitan region,
making it an ideal location for trucking
terminals. Today, the site is surrounded
by residential and commercial develop-
ment and, consequently, is seriously
underutilized.
With its easy access to Interstate
35W and proximity tO both downtown
Minneapolis and downtown St. Paul,
Twin Lakes is prime real estate that
10 CURA REPORTER
would have been redeveloped years ago
were it not sullied by pollutants--
mostly petroleum and solvents used to
clean engines--from decades of use by
trucking companies. Like many sub-
urban brownfield sites, Twin Lakes is
only mildly polluted, but this has
nonetheless slowed and complicated
the redevelopment process.
Although fear of uncovering poilu-
tion has stymied many redevelopment
projects, Roseville has taken advantage
of a progressive state-level Pollution
Control Agency, pilot grants from the
federal Environmental Protection
Agency (EPA), a regional housing
shortage, and a boom economy in the
1990s to plan, clean up, and begin rede-
velopment of the area. Other built-out,
cash-strapped, inner-ring suburbs may
find lessons in Roseville's approach.
Planning for Redevelopment. The
Twin Lakes redevelopment proiect has
benefited from a long-term vision for
the area. In 1988, the City of Roseville
designated the original 273-acre Twin
Lakes site as a tax increment financing
(TIF) district, which allows anticipated
tax revenues on a property to be used to
develop it and the debt to be paid off
using the captured tax base for a speci-
fied time. City planners also developed
a Twin Lakes Land Use Guide Plan to
direct redevelopment efforts at Twin
Lakes. Because the purpose of the rede-
velopment project was to invigorate the
city's tax base and provide a better mix
of living-wage jobs, the original land-
use plan included a mix of retail, office,
and business uses. More than 100 acres
on the site were developed in accor-
dance with the initial land.use plan
during the 1990s.
In 2001, Roseville completed a Twin
Lakes Renewal Strategy to consolidate
various land-use plans for the remaining
170 undeveloped acres in Twin Lakes.
As part of this strategy, the city provided
opportunities for public comment and
conducted an Alternative Urban
Areawide Review (a midsized environ-
mental investigation report). Although
the original intention was for Twin
Lakes to be developed entirely as
commercial-industrial uses, public
comment from residents and develop-
ment corporations suggested that resi-
dential uses might also be integrated
into the redevelopment plan. Because of
the strong residential character of the
land to the north of Twin Lakes and the
high amenity value of the site, planning
students in the Humphrey Institute cap-
stone seminar also suggested mixed-use
development that incorporated more
housing, particularly around the
Langton Lake area. This public input
helped to shape the discussion about
the next phase of redevelopment at
Twin Lakes, and Roseville planners
decided to alter the land-use plans to
incorporate residential uses along
Langton Lake.
The land-use plan for Twin Lakes
that has been approved by the Roseville
city council outlines a mixed-use,
livable community that includes office,
service, retail, and high-tech flex work
spaces, as well as 500-700 units of new
housing varying in density from 10 to
24 units per acre. The plans include two
neighborhood centers, a workplace
village, and a health and hospitality
district where Roseville hopes to attract
a medical office facility. In addition to a
fine-grained street pattern designed to
encourage greater integration of the mix
of uses designated for the area, the plan
also includes construction of Twin Lakes
Parkway, which will connect the
existing Terrace Drive to the Interstate
35W ramp at Cleveland Avenue.
Although the redevelopment of
Twin Lakes is gaining momentum, there
is still much work to be done. The
master plan indicates the proposed
future uses for each parcel in the area.
One of the next steps is for the City of
Roseville to encourage acquisition of
sites by developers, or even to purchase
sites itself (although properties in the
area have been selling at somewhat
inflated prices). Roseville could exercise
its power of eminent domain to acquire
properties, but the City currently does
not intend to become a prime land-
holder in TWin Lakes.
Funding Brownfield Redevelop-
ment. The City of Roseville has received
three grants from the EPA totaling
$850,000 for use in Twin Lakes. The first
was a pilot grant for property assess-
ment and community outreach focusing
on the future site of the Twin Lakes
Parkway. The second was a brown field
cleanup revolving fund loan that can be
used to pay for contamination remedia-
tion in the Twin Lakes area. The third
grant was to conduct an areawide
groundwater study of Twin Lakes. Other
funding sources included $75,000 from
the Metropolitan Council for site plan-
ning, financial projections, and market
studies.
The City established a Twin Lakes
tax increment financing district in 1988
that will expire in 2014. During the first
wave of redevelopment in Twin Lakes in
1994, TIF was heavily tapped to pay for
the cleanup of the Arthur Street landfill,
· which was discovered when Ryan
Companies redeveloped several sites as
high-tech office space. However, TIF's
power as a financing tool for Twin Lakes
is steadily waning. At this point, there
will not be enough time between
groundbreaking on a potential TIF
project and the expiration of the TIF
district in 2014 to collect the increment
necessary to fill the funding gaps in the
project. In January 2003, Roseville
applied for a special legislative remedy
to allow for creation of new tax incre-
ment urban redevelopment districts and
to authorize limited spending of incre-
ment from each district within the
redevelopment area, because some
development projects have a larger gap
than others.
Residential Redevelo[ament at Twin
£akes. Today Twin Lakes is poised for
redevelopment. A number of developers
have expressed interest in the area,
including Roseville Properties Manage-
ment Company, which recently
submitted a proposal to the City of
Roseville for a mixed-use development
that includes 450,000 square feet of
retail and office space and 500 market-
rate housing units on two former
trucking terminals. Although the market
for office space has weakened since
Roseville began its planning process, the
housing market has grown stronger. At
this point, it appears that the less tradi-
tional brownfield reuse--residential
redevelopment--is likely to occur at
Twin Lakes before the more typical
reuses as commercial or industrial space.
In choosing to pursue residential
redevelopment at Twin Lakes, Roseville
has had to overcome a number of obsta-
cles that are likely to confront any city
that undertakes residential brownfield
reuse projects. Several of these obsta-
cles-and the strategies and tools
Roseville used to overcome them--are
discussed below.
The assumption that brownfields
should be reused only as industrial sites
9aLl2a~[II~. Because most brown-
fields once hosted an industrial use,
people may come to think of the site as
having only an industrial future. But
risk-based corrective action (RBCA, or
"Rebecca"), a policy that many states
including Minnesota have adopted,
makes it possible to clean up a site to a
required level based upon the intended
reuse of the land (industrial, office, or
residential). Depending on the land use
intended, specified levels of contamina-
tion are allowable in soil and ground-
water; levels found to exceed those
standards must be remediated to meet
the standard.
Industrial, commercial, and office
end uses are treated much less strin-
gently than housing. Because most of
the land around nonresidential build-
ings is typically covered with pavement,
which provides a barrier to the contami-
nation, and because workers largely
remain inside the buildings and do not
spend much time recreating on exposed
soil as they might at home, far lower
levels of remediation are required.
Future housing sites require the highest
level of cleanup due to the exposure
The original land. use plans for Twin Lakes have been altered to Include housing along scenic Langton Lake. This use Is more
consistent with the residential character of the land north of the redevelopment site and provides Roseville citizens with access
to one of the city's natural amenities.
SPRING 2003 11
levels long-term residents might be
subjected to (potentially 72 years, 12
hours per day), as well as concerns that
children could accidentally ingest
polluted soil or other contaminants,
Because the degree of remediation
required is determined by the future
land use, master-planning of a redevel-
opment site is crucial to making the
right economic decisions along the way,
It would be prohibitively expensive (as
well as unnecessary) to clean up all of
Twin Lakes to residential standards, for
example, because residential remediao
tion standards are the most stringent
and therefore the most difficult and
expensive to meet, By remediating the
nonresidential sites to
commercial/industrial standards, the
costs of remediation when distributed
across the entire redevelopment area
can be quite reasonable. In the case of
Twin Lakes, careful planning for future
uses kept the average cost for remediao
tion across the entire site to between
$0.80 and $1.20 per square foot.
The fear of unknown contamina-
tion. which can drive away potential
developers. According to the EPA,
brownfields are "abandoned, idled, or
under-used industrial and commercial
facilities where expansion or redevelop-
ment is complicated by real or perceived
environmental contamination"
(emphasis added). By including percep-
tion in its definition, the EPA allows
that there might be no actual contami-
nation at all on a site generally consid-
ered to be a brownfield. Nonetheless,
the mere suspicion of contamination
might be enough to keep at bay other-
wise interested buyers, developers, and
municipalities who fear liability for
future cleanup costs. In short, the
perception of contamination--whether
justified or not--can result in market
behavior just as destructive as that
engendered by actual contamination of
the soil
Because the issue of perceived
contamination can play as much of a
role in redevelopment as real contami-
nation, redevelopment often must be
planned with contamination as a
looming unknown. Knowing the former
land uses on the site, the city or other
redevelopment entity must assume
there is contamination present and
proceed by undertaldng an environ-
mental assessment of the site. With the
help of an £PA pilot grant, Roseville has
done just that. A good portion of the
funding from EPA has been earmarked
for extraction of soil borings and lab
testing of soil samples from Twin Lakes.
Some of those samples have indicated
that contamination is present in the
soil, but thus far the levels have been
low enough not to require remediation.
Because more serious contamination
may nonetheless be present on areas of
the site that have not yet been tested,
the city has a brownfleld revolving loan
fund to offer to interested developers or
land owners to help defray the costs of
any cleanup required.
The EPA pilot grant also paid for
extensive community outreach, which
The us~ of petroleum products and engine-cleunlng solvents mildly contaminated the soil around the trucking terminals that
formerly occupied the Twin Lakes redevelopment site. By cleaning up nonresidential redevelopment sites to commercial~industrial
standards, the City of Raseville has kept remedlation costs for the project as a whole quite reasonable.
12 CURA REPORTER
allowed City of Roseville staff to educate
the community about brownfield rede-
· velopment and elicit comments from
local business owners, residents, elected
officials, and state and local agency
representatives regarding what uses they
wanted to see developed on the site. In
spite of contamination concerns,
housing consistently emerged as a
strong component of the redevelop-
ment proiect during all of these discus-
sions. In the year and a half since the
city council approved the Twin Lakes
master plan, market demand for
housing has actually resulted in more
housing being added to the area around
Langton Lake than was originally
planned.
The risk that the city will be held
liable for any contamination found. The
Superfund approach of the 1980s and
1990s was an attempt to punish
polluting landowners and make them
pay for cleanup of degraded land in
their charge. Today, EPA is taking a
different tack. The agency has devel-
oped a competitive process for Brown-
field Demonstration Assessment Pilot
Grants of $150,000 to $200,000 to
investigate contamination and draft
cleanup plans. This approach is more
appropriate for smaller brownfield sites
than for Superfund-level cleanups, but
the key factor is that the focus is on
remediation rather than punishment.
Roseville received a $200,000 demon-
stration grant, which was instrumental
in supporting the redevelopment
process at Twin Lakes.
In the state of Minnesota, the
Minnesota Pollution Control Agency
(MPCA) runs the Voluntary Investiga-
tion and Cleanup program, which
allows properties to register with the
MPCA and receive letters indicating "no
further action needed" once cleanup
has been completed on a site, or "no
association" (with contamination),
which retroactively removes liability
from the current property owner. A
number of property owners in Twin
Lakes have worked with MPCA and
have received such letters. Given the
voluntary nature of the program, the
focus has clearly shifted away from
punishment, which only succeeded in
idling facilities and driving property
owners into obscurity. The focus on
redevelopment strategies instead allows
cleanup funds to go to proactive prop-
erty owners, who have access to more
funding sources once MPCA removes
from them any legal responsibility or
liability for cleanup.
Today there is even contamination
insurance available for purchase from
select insurance firms. The insurance
policy gives a city or other developer
the ability to proceed on a site where
the extent of contamination is uncer-
tain and where ballooning remediation
costs might otherwise sink the entire
project. Roseville staff learned about the
opportunity to buy such insurance, but
will not consider purchasing it unless
the City becomes a prime landowner
itself at some point in the future.
The assumption that it is easier to
develop ~eenfield sites on the urban
fringe than deal with the complexities
of brown field redevelopment. During
the last decade, the Twin Cities region
has earned:the dubious distinction of
being one of the nation's most
sprawling metropolitan areas. Although
development on the urban fringe may
appear more attractive than navigating
the uncertain terrain of brownfield rede-
velopment, the potential infrastructure
costs associated with fringe develop-
ment counsel against such a short-
sighted view. A mixed-use development
like Twin Lakes will make better use of
the transportation infrastructure already
in place than would any fringe commu-
nity, and will provide much-needed
housing, a range of skilled labor jobs,
and proximity to the economic engine
of the Twin Cities.
Beyond the addition of Twin Lakes
Parkway, no new roads are needed to
support Rosevillets business park, yet
many multimodal connections are
enhanced. The 1-35W ramp at Cleve-
land Avenue is being reconfigured for
safety and to link to the Twin Lakes
Parkway. The express bus or light-rail
line slated to run on the Northeast Diag-
onal through Ramsey County will have
a regional transit stop or hub at Twin
Lakes. Another proposed light-rail line
from White Bear Lake to Minneapolis
would likewise tie in perfectly with the
Twin Lakes development. In addition,
Roseville is already fully connected to
sewer and water service and can readily
support the proposed development at
Twin Lakes without costly pipe exten-
sions or new lines. All of these factors
have helped to make Twin Lakes an
attractive location for redevelopment.
The entire region benefits when new
developments can plug into the existing
transportation and sewer infrastructure
as Twin Lakes does. Roseville will be
adding hundreds of new households
that will bolster the existing and
proposed mass transit systems by
. adding many new potential riders to an
area within walking distance of key
transit stops.
Minnesota: The Once and Future
Brownfleld Leader?
The field of brownfield redevelopment,
particularly for residential reuse, is at a
crossroads. For an industry where so
little was known or understood that an
esoteric vocabulary had to be developed
to even begin to discuss it, we have
come a long way in 10 years. Public offi-
cials, bankers, economic development
spedalists, and real estate developers
have adapted to the challenges of
brownfield redevelopment, and the
human capital exists to proceed confi-
dently with the successful redevelop-
ment of formerly contaminated sites.
At EPA's national brownfields confer-
ence in 2000, brown fields expert
Charles Bartsch publicly touted
Minnesota as one of the most progres-
sive states in the nation for brownfield
redevelopment. Unfortunately, state
commitments to brownfield redevelop-
ment began retrenching even before the
economy soured following 9/11. The
Minnesota State Legislature's property
tax reforms in 2001 jeopardized
financing options for brownfleld rede-
velopments in many Minnesota munici-
palities. Economic development experts
were dismayed at the limits placed on
tax increment financing. With munic-
ipal debt service now a top priority over
new spending, tax increment districts
are no longer a viable way to finance
the revitalization of most brownfield
sites. Likewise, the Minnesota Depart-
ment of Trade and Economic Develop-
ment's Redevelopment Account grant,
one of Minnesota's largest brownfield
redevelopment funding programs, was
repealed during the 2002 legislative
session. The demise of this program is a
real blow to smaller municipalities that
had intended to commence remediation
efforts on local sites but cannot afford
to do so without such assistance.
Based on Roseville's experience with
the Twin Lakes redevelopment project,
it is possible to identify several policy
changes that would assist inner-ring
suburbs with their efforts to redevelop
brownfields and encourage the metro-
politan region to seek the highest and
best uses of its land.
1. Allow new 2S-year redevelopment
TIF districts to be created.
Considering how few state funding
sources remain for brownfield rede-
SPRING 2003 13
A regional brownfleld redevelopment stt~ure modeled on the fiscal disparities act
would allow suburban communities to more equitably share the economic burden of
brownfield redevelopment.
velopment, TIF is a critical brown-
field tool. TIF needs to be adequately
flexible to allow for pooled districts
and permit cities to close and start
new districts when necessarg.
Without TIF laws that work for
inner-ring suburban communities,
new redevelopment proiects will
continue to leapfrog to the develop-
ing outer-ring suburbs.
2. Recognize roads as economic devel-
opment tools. Brownfield redevelop-
ments generate new iobs for the
region, but often require new roads to
break up and provide access to the
large parcels characteristic of former
industrial sites. Ideally county and
state aid would provide transporta-
tion finance assistance for the con-
struction of such roads when a city
can show the site will provide new
lobs. When cities have to foot the bill
for new roads on their own, the rede-
velopment process is further slowed.
3. Create a regional brown field redevel-
opment authority for inner-ring sub-
urban cities. Such an agency would
be a regional entity for a regional
problem. Today, an individual sub-
urb is expected to bear all of the
costs of a brownfield redevelopment
project, even though other munici-
palities will reap some of the bene-
fits of that redevelopment. No one
city by itself can adequately foot the
bill for brownfield cleanup and rede-
velopment, but together cities can
share the costs. One way to fund a
regional agency would be to create a
structure modeled on the Charles R.
Weaver Revenue Distribution Act
(commonly known as the fiscal dis-
parities act), in which a select group
of inner-ring suburbs would con-
tribute a portion of their commercial
and industrial tax revenues to a
regionwide contamination fund that
would then be redistributed among
brownfield redevelopment projects
in the participating suburbs.
Suburban brownfield redevelopment
projects need the support of local
elected officials in order to succeed.
City-led redevelopment projects tan
span decades and require city coun-
cil support over the long haul, from
planning to groundbreaking.
Leadership shown by elected officials
encourages the public to become
more actively involved in the plan-
ning process, leading to better out-
comes. Given that the makeup of
suburban city councils will undoubt-
edly change over l~he course of a
large-scale redevelopment project,
general council support for the proj-
ect allows city staff to maintain
momentum.
Smart growth activists would be wise
to support brownfield redevelop-
ment efforts. Redeveloping poten-
tially contaminated sites within the
seven-county metro area advances
the goals of smart growth advo-
cates--less sprawl; more compact
developments; better use of existing
roads, mass transit, and sewers; a
jobs-housing balance where workers
can afford housing near their jobs; a
cleaner environment; and less
dependence on the automobile.
Smart growth and brownfield advo-
cates will find that their end goals
are quite similar If they can join
together in coalitions, they will be
able to consolidate their resources
and lobby more effectively for per-
manent brownfield funding sources
that contribute to smart growth
efforts.
Jill Mazullo is an associate with the
research and geographic information
systems firm of Ameregis in Minneapolis,
Minnesota. At the time the research for
this article was initiated, she was
employed as a graduate student intern by
the City of Roseville through CURA's Local
Government Planning Internship
Program.
14 CURA REPORTER