HomeMy WebLinkAboutAppendix A1 44th-France SAP_10-1-18
Final Plan
August 24, 2018
Small Area Plan
for the
City of
Edina’s
44th & France
Neighborhood Node
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page i
Table of Contents
Acknowledgements........................................................................................................................... iii
Executive Summary ........................................................................................................................... iv
1. Introduction ................................................................................................................................ 1
Purpose ................................................................................................................................................... 1
How the Small Area Plan will be Used .................................................................................................... 1
Study Area .............................................................................................................................................. 3
Community Engagement and the Planning Process .............................................................................. 5
Major Planning Issues ........................................................................................................................... 11
Guiding Principles ................................................................................................................................. 12
2. Community Context and Demographic Characteristics ................................................................ 25
Community Context ............................................................................................................................. 25
Demographic Profile ............................................................................................................................. 27
3. Land Use and Urban Design Framework ...................................................................................... 33
Current Conditions ............................................................................................................................... 33
Trends and Challenges ......................................................................................................................... 36
Goals and Policies ................................................................................................................................. 37
Future Land Use.................................................................................................................................... 40
4. Heritage Preservation ................................................................................................................ 55
History of the Area ............................................................................................................................... 55
5. Economic Vitality ....................................................................................................................... 57
Current Conditions ............................................................................................................................... 57
Trends and Challenges ......................................................................................................................... 59
Goals and Policies ................................................................................................................................. 60
6. Parks, Open Spaces, Natural Resources ...................................................................................... 61
Current Conditions ............................................................................................................................... 61
7, Transportation ........................................................................................................................... 63
Current Conditions ............................................................................................................................... 63
Trends and Challenges ......................................................................................................................... 67
Goals and Policies ................................................................................................................................. 68
Future Transportation System.............................................................................................................. 69
8. Community Facilities .................................................................................................................. 75
Current Conditions ............................................................................................................................... 75
9. Implementation ......................................................................................................................... 77
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
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List of Figures
1. 44th & France Small Area Plan Study Area ......................................................................................... 4
2. 44th & France Planning Process .......................................................................................................... 6
3. Demographic Analysis Area............................................................................................................... 26
4. Study Area Land Use Pattern ............................................................................................................ 34
5. Future Land Use ................................................................................................................................ 41
6. Maximum Building Heights within the Study Area ........................................................................... 44
7. Six Frontage Types ............................................................................................................................ 46
8. Application of Frontage Types .......................................................................................................... 47
9. Existing Plan and Proposed Conceptual Plan .................................................................................... 49
10. Conceptual Perspective Looking Northeast ...................................................................................... 50
11. Conceptual Perspective Looking Southwest ..................................................................................... 50
12. Conceptual Perspective Looking East................................................................................................ 51
13. Conceptual Perspective Looking North ............................................................................................. 51
14. Conceptual Perspective Looking North ............................................................................................. 52
15. Recommended Improvements on France Avenue ........................................................................... 71
16. Recommended Improvements on Sunnyside Road .......................................................................... 72
17. Recommended Improvements on 44th Street ................................................................................. 73
18. Traffic Calming Precedents ............................................................................................................... 74
List of Tables
1. 42the and France Small Area Plan Work Group Meeting Summary ...................................................... 7
2. Community Meeting Promotions ........................................................................................................... 8
3. Community Meeting Summary .............................................................................................................. 9
4. Land Use: Year Built and Type .............................................................................................................. 35
5. Future Land Use Categories ................................................................................................................. 42
6. Daily Traffic Volumes ............................................................................................................................ 64
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
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Acknowledgements
City Council Members
James Hovland Mayor
Mary Brindle
Mike Fischer
Kevin Staunton
Bob Stewart
City Planning Commission Members
Joan Olsen Chair
Ian Nemerov Vice-Chair
James Bennett*
Sheila Berube*
John Hamilton
Steven Hobbs
Susan Lee
Gerard Strauss
Todd Thorsen
Tanner Jones Student
Anand Mittal Student
(* Co-Chairs to the 44th/France Small Area Plan Work Group)
Small Area Planning Team Work Group Members (Volunteers)
Katie Ayotte
Jimmy Bennett
Sheila Berube
Harvey Ronald Berg
Lisa Fagan
Eric Olson
Mike Platteter
Rebecca Sorensen
City of Edina 4801 W. 50th Street, Edina, Minnesota, 55424
Cary Teague Community Development Director
Kris Aaker Assistant City Planner
Mark Nolan Transportation Planner
Consultant Team Members
William Smith Biko Associates, Inc.
Daniel Lubben Biko Associates, Inc.
Bob Close Bob Close Studio, LLC
Dan Cornejo Cornejo Consulting
Dan Edgerton Zan Associates, Inc.
Joseph Hang Joseph Hang Design
Janna King Economic Development Services, Inc.
Haila Maze Bolton & Menk, Inc.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page iv
Executive Summary
Two Cities, One Commercial Node
In practical terms, 44th and France in
Edina is “one-half” of a commercial node.
Immediately to the east is 44th and
France in Minneapolis. While cities and
other government jurisdictions recognize
streets as boundaries, markets do not.
Therefore, these two commercial areas
share the same market area and are two
halves of the same place.
In 2013, the City of Minneapolis, in
collaboration with the Linden Hills
Neighborhood Council, completed the
Linden Hills Small Area Plan to guide
future change and development on the
east side of France Avenue. This 44th
and France Small Area Plan presents an
exciting opportunity for Edina residents
to chart a course for future change for
the Edina portion of this larger node and
an implementation program for shaping
and managing public and private
investment.
Historical and Present Day
Development of Edina’s
44th/France Commercial Node
In terms of real estate development, the
44th and France commercial node in Minneapolis differs from the 44th and France commercial node in
Edina. The Minneapolis side of France Avenue developed mostly after 1950, catering to modern auto-
oriented habits. This led way to large plats and the area’s large- and medium-sized parcels and a
development pattern of free-standing, one-story buildings that are fronted by large surface parking lots.
The 44th and France commercial node in Edina developed primarily between 1905 and 1936, as a
streetcar suburb. And although there have been some modifications to the original buildings since then,
the area still retains sidewalk-fronting buildings and a walkable character and identity. Therefore, today,
Looking north on France Avenue with Edina to the west,
and Minneapolis to the east.
Looking west toward the 44th/France Small Area study
area.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page v
if one were to compare the two sides of France Avenue, the Edina side would be identified as more
historic based on its buildings and more streetcar-oriented and village-like in terms of physical form.1
From a market perspective, the two sides of France Avenue have evolved with a complementary variety
of retail and service uses. From the shopper’s point of view, there is an abundance of neighborhood
goods and services from yoga classes, to bagels, to a haircut, to garden soil, to groceries, to aquavit, to a
burger/malt and fries, to a new pair of running shoes, to a veterinarian for the family pet….all within
walking distance.
In addition to its walkability, its streetcar-orientation, and its village-like character, the area’s convenient
shopping opportunities and mix of goods and services are important characteristics of the 44th/France
commercial node that this small area plan intends to preserve and enhance; even in the face of
inevitable change.
Future Development of Edina’s 44th/France Commercial Node
The purpose of the 44th/France Small Area Plan is
to provide the City of Edina (its policy makers,
staff, and citizens) a tool for making decisions that
will protect, maintain, and enhance those
character-defining features that have contributed
to the success and desirability of the commercial
node, while, at the same time, permitting the
market to take advantage of opportunities to
redevelop existing uses and develop new uses.
Moreover, the purpose of the plan is to provide a
vantage point for reviewing and evaluating future
redevelopment and development proposals to
ensure that they contribute to, rather than detract
from, the unique character of the area. In this
regard, the plan calls out specific steps developers
must take to mitigate the impacts of traffic their
projects generate, whether immediately adjacent
to a new development or a few blocks away within
the interior of the adjacent neighborhoods. In
addition the plan identifies specific public realm
investments that the city would seek from
developers with proposals that exceed the
current planning and zoning regulations.
1 There are three properties on the Edina side of France Avenue that are determined to be eligible for City of
Edina Heritage Landmark designation. The three properties are Odd Fellows Hall (originally constructed in
1908), the original Griffen Drug Store (current home to Bruegger's Bagels, constructed in 1920), and
Convention Grill (constructed in 1934). These buildings, which are identified for protection in this Small Area
Plan, prominently contribute to the historic character and authenticity of the Edina side of France Avenue.
Proposed conceptual future plan.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page vi
The 44th/France Small Area Plan’s standing is derived from a city’s authority to regulate land use (e.g.,
growth and development) in order to protect the general welfare of its residents. The small area plan
recognizes the authority of the City’s zoning ordinance and comprehensive plan to regulate various
aspects of land use development. Specifically, the small area plan recognizes the height limit described
in the Code of Ordinances and the limit on density that is outlined in the 2008 Comprehensive Plan.
At the same time, analysis conducted during the small area plan study showed that the City’s height and
density limits have kept pace with neither current market demands nor the implications of rising
property values within the study area as they bear on return on investment. These and other factors
that reflect the realities of development speak loudly in favor of allowing building heights greater than
two stories and densities greater than 12 dwelling units per acre.
Recognizing this change in market conditions, this small area plan lays out an approach through which
developers could be allowed additional height and/or greater density in exchange for specific
improvements to the public realm.
44th/France Small Area Plan Guiding Principles
An important element of this small area plan is its 11 guiding principles. The guiding principles were
developed with input from community members at three Community Meetings and members of the
44th/France Work Group, who operated as a steering committee during the small area plan study. The
guiding principles, summarized below and on the next page, reflect the community’s vision for the small
area and should be seriously considered by developers when his/her planning and architectural team
prepares a proposal to develop property on the Edina side of the 44th/France commercial node.
44th/France Guiding Principles
Guiding Principle 1: Safe and Inviting
The area should be safe for people of all ages and all
backgrounds and should be a visually attractive and
diverse place that encourages regular use and
strengthens neighborhood identity
Guiding Principle 2: Community Gathering
The small area should provide a place(s) for
people to gather and spend leisure time, whether
in a commercial or public location, and foster a
community of learning. Flexible gathering space
should be explored that can be programmed to
accommodate a wide range of different uses.
Guiding Principle 3: Circulation and Connections
The area should provide attractive and easily
identifiable infrastructure that accommodates
convenient and safe movement for a variety of
transportation modes, including bicycling, walking, and
transit use. The area should also have safe and
convenient non-motorized connections to nearby
districts. Vehicular traffic should be managed to
discourage cut-through traffic in neighborhoods.
Guiding Principle 4: Neighborhood-Oriented
Business Mix
There should be a mix of businesses that provides
goods and services to the neighborhood, including small
offices and commercial uses. The amount and
configuration of commercial space should be allowed to
adjust in response to the market.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page vii
44th/France Guiding Principles (continued)
“Give to Get:”
This small area plan outlines a process through which development and redevelopment proposals with
heights between three and four stories and densities higher than 12 dwelling units per acre will be
considered for approval. The process (“Give to Get”) is based on the court-tested concept of cities’
requesting dedications in exchange for development approvals. 2 A developer, in return for receiving a
city’s approval to develop land and realize a profit, agrees to donate to the city an amount of land or
2 Associated Home Builders, Inc. v. City of Walnut Creek, 4 Cal. 3rd 633, 644 (1971).
Guiding Principle 5: Housing
Housing should be provided in the study area to ensure
choices for existing and future neighborhood residents.
New types of housing may be provided, including multi-
family dwellings (in mixed-use buildings with residential
uses above ground level commercial or office space) or
additional types such as courtyard housing,
townhomes, and live/work housing. It is felt that the
market will support the preferred housing types, which
could include apartments and ownership options.
Preferences should be the types that best support the
city’s affordable housing policy.
Guiding Principle 6: Height and Size of Buildings
Building heights should be guided by the zoning
ordinance. Additional height (up to four stories,
at approximately 15 feet per story) may be
considered, depending on their location and
relationship to other buildings around them.
(Building heights above the two story limit
detailed in the existing zoning ordinance will be
considered for approval if a developer agrees to
implement study area-specific and project-specific
improvements that are detailed in this small area
plan.
Guiding Principle 7: Parking
Parking should be hidden from view behind or beneath
buildings on the west side of France Avenue. The large
parking lot with multiple owners between Sunnyside
and 44th Street should be reimagined as a “community
parking facility” that accommodates parking for the
study area (district). This community parking facility
should be designed to double as gathering space and
should have the flexibility to change over time, as other
modes of transportation, such as ride-sharing, become
more common and fewer parking spaces are needed.
Guiding Principle 8: Streets and Sidewalks
To create a gracious pedestrian environment, sidewalks
should be widened as much as possible. Buildings
should front onto the sidewalks, with few gaps and/or
driveways breaking the street wall. Street trees and
planters should be located between the curb and
sidewalk. Furnishings should provide places to sit and
dispose of trash and recycling. Vehicle traffic should be
managed to maximize efficiency while maintaining
safety for non-motorized users.
Guiding Principle 9: Sustainability and Resiliency
The ‘urban forest’ should be reestablished in the study
area, and more efficient, district systems for managing
storm water, harvesting energy and managing and
recycling waste should be incorporated. Design for
adaptability to changing needs and trends over time
should be pursued.
Guiding Principle 10 Visual Quality and Aesthetics in
the Public Realm
The public realm should include a high level of aesthetic
treatments, such as enhanced sidewalk pavement,
planters, and pedestrian level lighting. Utilities should
not impede sidewalks and should be underground,
where feasible. Property owners are expected to keep
their properties economically viable and attractive until
the market guides them to major changes.
Guiding Principle 11 High Quality Design, High Quality Materials, Respect for Existing Aesthetics, and
Innovations to Ensure Sustainability in the Private Realm
High quality architecture is required in the study area, in terms of design, materials, and energy efficiency,
which will contribute to sustainability. The design of remodeled and new buildings in the study area shall
reflect attention given to balance, proximity, alignment, repetition, contrast and space. Materials used in the
construction of remodeled and new buildings shall harmonize with materials and design features used in the
area’s existing structures. Innovated systems should be installed to help achieve energy efficiency.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page viii
money needed to provide certain services and amenities necessitated by the anticipated influx of new
residents or employees into the community as a result of such development.
The rationale supporting “Give to Get” is that developers create new burdens on city services, and their
developments can negatively impact adjacent neighborhoods (with increased traffic, for example).
Therefore, they should offset these additional burdens through the dedication of land or the payment of
fees. Cities, through the exercise of their authority to protect the welfare of their citizens, can impose
these exactions, so long as they are reasonable and have a nexus to the development project.
The City’s standing to enter into “Give to Get” agreements with developers rests on the small area plan’s
Guiding Principles, Goals, and Policies, each of which was developed with input from community
members during the small area plan study process. The involvement of community members in the
process ensured that the principles, goals, and policies reflect community values and desires. It is the
community’s values and desires that demonstrate the nexus: 1) between a development or
redevelopment and the impacts it creates and 2) between the development or redevelopment and the
welfare of the entire Small Area and adjacent neighborhoods.
What does a Developer have to Give in order to Get an Approval for Increased Height and/or
Increased Density?
The 44th Street/France Avenue Small Area Plan allows consideration for approval to be given to
proposed developments where height exceeds the maximum stated in the Zoning Ordinance and/or
where proposed density exceeds the maximum detailed in the 2008 Comprehensive Plan. In such cases,
consideration shall be given where:
1. Proposed heights are within a range of three to four stories along France Avenue and two to
three stories along Sunnyside Road and 44th Street and/or
2. Proposed densities are above the maximum, but appropriate based on building height, lot area,
and site configuration; and
3. The developer addresses and demonstrates a willingness, the means, and a commitment to
invest in the public realm within the Small Area.
Investment Commitment Categories
Two categories of investment commitments have been identified and are outlined below: Category 1 -
Required Investment Commitments and Category 2 – Discretionary Investment Commitments. A
developer must contribute to (invest in) the public realm for each item listed under Category 1 in order
for his/her development to be considered for additional height (up to three or four stories) and greater
density (more than 12 dwelling units per acre).
Category 1 – Required Investment Commitments are further divided into two sub-categories: 1) Study
Area-Wide Investments to the Public Realm and 2) Project-Specific Investments to the Public Realm.
Category 2 –Discretionary Investment Commitments offer the developer a list of public realm
improvements he/she can choose to invest in or not.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page ix
Category 1 – Required Investment Commitments
• Study Area-Wide Improvements to the Public Realm:3
- contribute to the costs of burying utility lines
- contribute to the costs of developing and maintaining and operating the proposed district
parking facility/public gathering space
- contribute to the costs of constructing and maintaining small area pedestrian and bicycle
amenities, access streets, and internal circulation streets serving the proposed district parking
facility
- contribute to the costs of treating stormwater in the small area
- contribute to the costs of treating surface water runoff that will result from construction of the
proposed district parking facility
- contribute to the costs of installing and maintaining lighting and security measures at the
proposed district parking facility
- contribute to the costs of enhancing, installing, and maintaining pedestrian crosswalks
- contribute to the costs of designing and constructing recommended traffic calming devices
along neighborhood streets west of France Avenue.
- contribute to the costs of constructing and maintaining transit shelters at bus stops on France
Avenue
• Project-Specific Commitments:4
- improve sidewalks, install street furniture and pedestrian-scaled street lighting, and plant street
trees and other vegetation adjacent and in proximity to the development
- improve the transportation system immediately adjacent to the development (e.g., traffic
control devices, traffic signals, constructed/reconstructed curbs and sidewalks, etc.) that will be
required to mitigate impacts of traffic that is generated by a specific development
- implement traffic calming strategies and infrastructure immediately adjacent to the
development to help ensure safety and security for motorized vehicles, bicyclists, and
pedestrians on streets in the small area
- provide a graceful transition to the neighborhood
- meet conditions of the City’s affordable housing policy
Category 2 – Discretionary Commitments
- implement travel demand management strategies to reduce automobile trip generation
- implement infrastructure and programs to encourage building users to ride the bus or ride
bicycles (e.g., provide parking for bicycles)
3 Study-Area Wide Improvements to the Public Realm are improvements that will be implemented throughout
the entire Small Area. Developers within the study area will be charged a fee based on factors including but
not limited to: proximity to the improvement and rough proportionality as to the use of the improvement.
4 Project-specific commitments include improvements to the public realm that are intended to: 1) mitigate the
immediate impacts of a specific project on livability and/or 2) enhance livability directly adjacent to the
project. They additionally include commitments to meet City of Edina goals.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page x
- implement state of the art methods and infrastructure for treating surface water runoff on the
development parcel in an ecologically sound manner
- implement shared parking strategies and facilities
- construct underground parking
- provide vehicle-electric charging stations in garages where residential parking will be provided
- implement LEED building design standards and efforts to help ensure the City of Edina achieves
its energy self-sufficiency goal
- provide public art
- ensure high quality architecture, beyond that required in the Code of Ordinances
Specific actions a developer will take and specific projects a developer will initiate and complete should
be documented in a formal development agreement if a developer is allowed to exceed heights and
densities stated in the Code or Ordinances and the 2008 Comprehensive Plan.
44th/France Small Area Plan Goals and Policies
As mentioned, the community’s vision for the 44th/France commercial node informed the development
of the 11 guiding principles. In turn, the guiding principles informed the development of goals and
policies for the small area. Goal development and policy formulation are critical steps in land use
planning. Not only are goals and policies required by statute, but these two elements of the
44th/France Small Area Plan provide a basis for a community to make decisions about its future land
use. In this sense, the goals and policies are bridges between the guiding principles (the community’s
vision) and action steps that will bring the vision to reality.
Goals and policies outlined in the 44th/France Small Area Plan are described in detail in the following
plan chapters.
• Land Use and Urban Design Framework
• Economic Vitality
• Transportation
Land Use and Urban Design Framework Goals and Policies
Land Use and Community Design Goals:
1. Maintain and strengthen the core.
2. Ensure that buildings interact with the public realm.
3. Ensure that there are graceful transitions in building height between France Avenue and the
adjacent neighborhoods
4. Promote flexible evolution of land uses
5. Minimize the impact of automobiles.
Land Use and Community Design Policies:
1. The City will adopt the designation of Neighborhood Node (as shown in the Wooddale/Valley
View Small Area Plan) to replace the previous designation of Neighborhood Commercial.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page xi
2. The City will review development applications of all future projects within the boundaries of the
44th and France neighborhood node to ensure compliance with:
• City of Edina Code of Ordinances, including Sec. 36-1214. Maximum Building Heights,
• Other pertinent land use regulations, and
• Land Use and Design Guiding Principles outlined on pages 12 through 23 of this small area
plan.
3. The City will consider new development that changes current and permitted land use scale and
intensity by implement a process where a developer must invest in the public realm (both at the
Small Area-wide scale and Project-specific scale) in order for the proposed development to be
considered for approval.
4. The City will consider development proposals for approval where:
- Proposed heights are within a range of three to four stories along France Avenue and two to
three stories along Sunnyside Road and 44th Street;
- Proposed densities are appropriate, based on building height and lot area; and
- The developer addresses and demonstrates willingness, the means, and a commitment to
invest in the public realm within the Small Area.
Economic Vitality Goals and Policies
Economic Vitality Goals:
1. Encourage property owners to meet to explore shared interests.
2. Explore the city’s interest and capacity to participate in property acquisition and assembly.
Establish city approach, goals and policies regarding potential participation in purchasing and
holding property in the area.
3. Explore potential for employing a Business Improvement District or other mechanisms to
support maintenance of shared parking and other public realm improvements. Be a supportive
partner if business and property owners in the area choose to pursue options for shared
improvements and maintenance.
Economic Vitality Policies:
1. The City will support redevelopment of obsolete properties, site assembly and revitalization of
the 44th and France node consistent with the small area plan and other city goals and policies
including urban design, transportation, transit, housing, wellness, historic preservation,
stormwater management and complete streets goals.
2. The City will use redevelopment tools to create public realm improvements including
streetscape improvements, pedestrian and bicycle safety and amenities, public parking, utility
and transportation improvements, storm water management and park, plaza or green spaces.
3. The City will maintain flexibility in deciding which redevelopment tools to use by considering a
variety of factors including the quality of a development, its height, density and appropriateness
for the market, tax base and the quality and character of public realm improvements.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page xii
Transportation Goals and Policies
Transportation Goals:
1. Ensure safe, convenient, and efficient movement through and within the small area for all
transportation modes, including motorized vehicles (trucks and automobiles), transit buses,
bicycles, and pedestrians.
2. Match transportation infrastructure and facilities to the appropriate travel purpose with intent
to:
- improve convenience, safety and efficiency for local (External-to-Internal, Internal-to-
External, and Internal-to-Internal) trips
- Encourage through (External-to-External) trips to travel on France Avenue
- Minimize the impact of traffic on 44th Street, a local collector street
- Discourage through traffic from travelling on local connector, residential streets (e.g.,
Sunnyside Road)
3. Ensure that the area's transportation system can accommodate redevelopment- and
development-generated traffic during peak periods of the day.
4. Ensure that there are safe and secure places to park cars and bikes where parkers will have
convenient access to study area destinations.
5. Enhance the small area's transit environment by providing amenities that make it easier and
more comfortable to wait for and use transit for the complete range of trip purposes.
6. Enhance the small area's pedestrian system, including sidewalks, crosswalks, and traffic control
devices that operate to improve pedestrian safety.
7. Enhance the small area's bicycle system, focusing on improvements to increase safety and
ensure that cyclists with a wide range of abilities and comfort levels are able to bike within the
small area.
Transportation Policies:
1. The City will coordinate with MnDOT, Hennepin County, the City of Minneapolis, and Metro
Transit in order to assess and resolve transportation issues in the small area with a focus on
implementing comprehensive, district-wide solutions.
2. The City will, independent of the need to address redevelopment/development proposals,
periodically coordinate with other affected transportation agencies to assess and evaluate
transportation and traffic operations in the study area.
3. The City will, in the event the above periodic assessments and evaluations indicate there are
deficiencies in the system and/or compromises to safety and livability and independent of a
development/redevelopment proposal, address the issue(s) and, either acting alone or in
cooperation with other transportation agencies: a) conduct studies to clearly define issues and
identify alternative solutions, b) conduct design studies, and c) implement the preferred
solution(s).
4. The City will require the proposers of new development projects and significant redevelopment
project s to complete Traffic Impact Analysis (TIA) reports as a component of the development
review process. The geographic scope of TIA reports will be defined by the City of Edina, as will
the scope of transportation/traffic issues to address.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page xiii
5. The City will, in the event the TIA indicates a proposer's development will generate traffic that
exceeds the capacity of the street system and/or will impact adjacent residential areas,
coordinate with the project proposer to identify mitigation measures that should be examined
to determine which will ensure that acceptable traffic operations can achieved.
Implementation
An implementation plan is outlined in this small area plan on pages 77 through 80. As shown, most
of the action steps can be put in place immediately; as soon as City Council adopts the 44th/France
Small Area Plan. The City of Edina already has in place necessary staff, departments, and programs
for carrying out the recommended implementation plan.
The land use and urban design implementation steps can begin as soon as this plan is adopted. In
fact adoption of the plan (and its contents) would immediately give the Planning Department
authority to: 1) designate land uses in the 44th/France commercial node as Neighborhood
Commercial uses, 2) adopt the guiding principles as evaluation criteria against which development
proposals would be measured and assessed, and 3) apply the “Give to Get” process that is
described above on pages vii through x.
The economic vitality implementation steps depend to a large degree on the City’s and Chamber of
Commerce’s involvement with property owners and business operators at the commercial node.
Recommended action steps include development of a Business Improvement District and the
development of a process where property owners can begin to communicate with each other and
work cooperatively in the future development/redevelopment of the small area.
The plan’s recommended transportation-related action steps fall into two categories: 1) those that
will be triggered by new development and redevelopment proposals and 2) those that should take
place even if there is no development proposal before the City. The latter include initiation of a
France Avenue Corridor study that would be conducted with the City of Minneapolis, Hennepin
County, MnDOT, and Metro Transit. This study, which would likely not begin until 2019-2020,
would need to be conducted before the recommended improvements to France Avenue (convert
four-lanes to three and widen sidewalk the sidewalks on the west side of France Avenue) are
implemented. Also included in the second category would be improvements to the transportation
system that should be addressed by the City (in coordination with Hennepin County) immediately.
These improvements include analyzing the eastbound free right-turn at the intersection of
Sunnyside Road/France Avenue and traffic signal timing and phasing at the intersections of
Sunnyside Road/France Avenue and 44th Street/France Avenue.
Conclusion
Residents in the vicinity of the 44th/France small area are concerned about the future. Although
there are problems at the commercial node today (mostly traffic-related problems), it was learned
through the 44th/France Small Area Plan study that many of the residents are pleased with the
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page xiv
current situation and, if given a choice between the certainty of today and the uncertainty of the
future, would opt to leave things as they are.
Everyone involved in the study had to at least consider, if not accept, the fact that things change;
that change is inevitable. Some of the buildings in the small area are obsolete and do not
contribute to the area aesthetically or functionally. Some of the property owners have begun to
consider future options as they age. Some of the business operators, as they age, have begun to
ask questions about their continued interest running a business.
It is difficult to see change occur right before one’s eyes, but when one door closes, another will
open, and this plan has been prepared to help ensure that future development and
redevelopment will contribute to, and not detract from “on the ground” features and
characteristics that make the commercial node at 44th and France successful. Moreover, the
44th/France Small Area Plan was prepared to help ensure that as future development and
redevelopment take place, those characteristics and features of the commercial node that
community members value will be preserved, maintained, and enhanced.
The plan’s guiding principles describe the community’s vision for the small area and also provide
prospective developers a list of desirable features and characteristics their proposed projects must
achieve in order to be found acceptable and worthy of approval. Together the plan’s guiding
principles and goals provide the City of Edina a measurement tool to use in their evaluation of a
developer’s project.
Finally, the plan’s policies, all of which identify positions and steps the City of Edina will take to ensure
that: 1) development and redevelopment activities result in appropriately scaled land uses, 2) property
owners and business operators are communicating and coordinating with the city, 3) that traffic issues
are addressed proactively (even without development/redevelopment proposals under consideration,
and 4) developers are responsible for mitigating the impacts of their projects on livability.
The plan was prepared with vigorous input provided by community members with strong opinions on
both sides of the issues that the plan attempts to address. The study process included three Community
Meetings. Two of these meetings were held at the Morningside Community Church, which generously
offered its Fellowship Hall for the meetings. The other Community Meeting was held at the Weber Park
Warming House. The meetings were opened to the public and included activities that brought
participants together to work, both as a whole and in small groups. Much was learned at these
meetings, as community members were given opportunities to express their opinions, review and ask
questions about research and analysis findings, and identify preferred options.
Guiding the 44th/France Small Area Plan study was a Small Area Plan Work Group (steering committee)
of volunteers. The Work Group met eight times during the study, each time bringing insights,
perspectives, opinions, and, eventually, the ability to reach compromises. Both community members at-
large and the Work Group sacrificed tremendous amounts of time and energy to ensure that the plan
would provide the best possible outcomes for the City of Edina and its 44th/France neighborhood node.
.
This small area plan has been reviewed by the Small Area Plan Work Group and has been found to
accurately present outcomes from the 44th/France Small Area Plan study, including the recommended
process whereby development proposals that exceed current height and density regulations can be
considered for approval. Therefore, the 44th/France Small Area Plan Work Group submits this plan to
the City of Edina Planning Commission for approval and the Edina City Council to be adopted as an
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page xv
amendment to the 2008 Comprehensive Plan, giving it immediate authority equal to the balance of the
Comprehensive Plan. Policies and guidelines regarding the 44th/France neighborhood node would then
be adjusted in the 2018 Comprehensive Plan to reflect these changes.
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Small Area Plan
for the
City of
Edina’s
44th & France
Neighborhood Node
Chapter 1
Introduction
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 1
1. Introduction
The 44th and France Small Area Plan is intended to be approved by the City of Edina Planning
Commission and then adopted by the Council in 2018 for inclusion by reference in the city’s new 2018
Comprehensive Plan Update. The 44th and France Small Area Plan was prepared to provide additional
guidance, beyond guidance found in the Comprehensive Plan, for the 44th and France neighborhood
node, which was defined in the city’s 2008 Comprehensive Plan as “an area of potential change.”
The 44th and France Small Area Plan addresses the same topical areas as those included in the city’s
comprehensive plan but provides more specific guidance on certain points. The 44th and France Small
Area Plan provides detailed guidance in the areas of land use, transportation and economic vitality. In
so doing, the 44th and France Small Area Plan will serve as an important tool for decision-makers when
evaluating future development projects. In addition, the Plan outlines specific action steps for the city
and other stakeholders to support the long term vision for the area.
What makes for a Successful Small Area What makes for a Successful Small Area What makes for a Successful Small Area What makes for a Successful Small Area PPPPlan?lan?lan?lan?
• The plan represents the shared vision of multiple community residents and stakeholders
• The plan provides a guide for future development
• The plan identifies the tasks and timelines necessary for successful completion
• The planning process strengthens the community through increased interaction and
understanding of varied perspectives.
• The planning process builds resident capacity to lead future activities related to the plan.
Purpose
Why the Small Area Plan was Developed?
The 44th and France neighborhood commercial node (also known as the Morningside Road commercial
area) was first identified in the 2008 Edina Comprehensive Plan as an area of potential change. As part
of the city’s overall 2018 update to the comprehensive plan, 44th and France was identified as one of six
critical geographic areas within the city that have the potential for significant change, development, and
redevelopment. Pursuant to that end, City Council directed the Planning Commission and Community
Development staff to undertake a small area planning process for each of these six areas to provide
additional guidance for future development and redevelopment.
This plan creates a long range decision-making, planning, and design framework that allows existing
assets to thrive while needed new investments are introduced in a carefully planned and sensitively
designed manner.
How the Small Area Plan Will Be Used?
Small area plans determine land use regulations and help to guide future redevelopment proposals. City
staff uses small area plans to identify infrastructure improvements necessary to support the uses
proposed in the plan. Small area plans do not, however, guarantee redevelopment will occur or that
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 2
proposed public improvements will take place. Other factors, such as market conditions or budget
priorities, will play an important role in how a small area plan is implemented. It is important to
remember that small area plans are intended to provide guidance over a long period of time.
The 44th and France Small Area Plan serves as an important tool for landowners, developers, city
planners, City Council members and Planning Commission members when evaluating future
development and redevelopment projects. In addition, the Plan outlines specific action steps for the
city and other stakeholders to support the long term vision for the area.
Developers and landowners will find the plan useful when conceptualizing and preparing development
plans for implementation in the 44th and France study area. Reviewing the small area plan during the
early stages of project development will inform developers of city-adopted directions, standards and
guidelines and will ultimately prove to be a time- and resource-saving measure that can streamline the
development review process.
City staff will find the plan to be a useful tool when explaining and illustrating City-adopted directions,
standards, and guidelines to developers. They will then be able to use the plan’s principles, goals, and
policies to assess and evaluate the degree to which developers’ plans adhere to city directions and the
impact of variances developers might seek.
The Planning Commission will use the plan when deciding whether to approve development proposals
and pass them along to the City Council for adoption.
Relationship of the Plan to Zoning
Zoning regulations are included in the city’s Municipal Code of Ordinances. They are laws, and, by
comparison, the comprehensive plan (and the small area plan) is a guide. The authority of zoning
regulations, however, is based on and derived from the comprehensive plan. Zoning regulations
are specific to each land parcel while the comprehensive plan is sometimes broader and more
open to interpretation. In the Seven County Metropolitan Area, zoning regulations are required to
be consistent with the comprehensive plan but may, and often do, provide a more detailed level of
control over the use of each land parcel.
Use of the Plan in Development Applications
Any owner or prospective developer who is interested in major changes in the study area would be
directed by staff to the 44th and France Small Area Plan to learn what the city has envisioned and is
requiring for the study area. The Plan would likely be used as follows during the review of an
application for development, variance or rezoning in the study area.
A. Remodel Existing Buildings Conforming to Existing Zoning:
If a property owner wishes to remodel existing space, the application would have to
conform to current zoning regulations including the permitted uses and the dimensional
standards such as setbacks, building coverage, floor-to-area ratio and building height. The
small area plan, however, could be referenced to identify guiding principles, goals, and
policies (developed specifically for the 44th and France neighborhood node) that must be
met in order for requested variances to the zoning regulations to be considered.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 3
B. Expand Buildings by Less than 10 Percent Conforming to Existing Zoning:
If a property owner wished to expand an existing building, conformance would be required
to the current zoning regulations including the permitted uses and the dimensional
standards such as setbacks, building coverage, floor-to-area ratio and building height. The
small area plan, however, could be referenced to identify guiding principles, goals, and
policies (developed specifically for the 44th and France neighborhood node) that must be
met in order for requested variances to the zoning regulations to be considered.
C. Expand Buildings that Do Not Conform to the Zoning Ordinance or Expand Buildings by
More than 10 Percent:
If a property owner wished to expand an existing building that does meet certain zoning
regulations such as setbacks, building coverage, floor-to- area ratio or parking
requirements, a “variance” would be required. To expand a building by more than 10
percent, a Site Plan Review is required. Necessary variance application(s) must be reviewed
by the Planning Commission and approved by City Council.
The small area plan would be used as a tool during this review process. Certain conditions
(guiding principles, goals, and policies) recommended in the small area plan could be
required of the applicant. For example, since the small area plan includes guidelines on
architectural/ building materials and streetscape design, those could be imposed as
conditions of a variance. Conversely, as the small area plan encourages buildings to be
located close to the front property line, an applicant’s insistence that the building should be
located behind the parking lot, could be a basis for denying a variance application.
D. Tear Down and Rebuild or Change the Use of Land
If a property owner wished to demolish a building and rebuild another, and a variance
and/or rezoning is required, conditions stated in this small area plan (regarding zoning,
density, and design and appearance) would have to be met. Review by the Planning
Commission and approval by City Council would be required. The small area plan would
be used as a tool during the review process. The development application should be
consistent with the small area plan. Again, certain recommendations of the small area
plan (44th and France-specific guiding principles, goals, and policies) could be imposed as
conditions of approval. The same examples as mentioned above would apply regarding
height and density, streetscape, building location, land use, exterior materials, landscaping
and so forth.
Study Area
The area of study addressed during the planning and design process included the public street rights-of-
way and several land parcels in the immediate vicinity of the intersection of West 44th Street and
France Avenue South, particularly to the west of the intersection. Figure 1, on the following page,
shows the Study Area. It’s notable that the larger portion of the commercial area at this intersection is
located east of the intersection in the City of Minneapolis. (France Avenue South is the boundary
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 4
Figure 1:
44th & France Small Area Study Area
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 5
between the City of Edina and the City of Minneapolis.) Included on the Edina side are areas designated
in the 2008 Edina Comprehensive Plan mostly as Neighborhood Commercial, with a few designated as
Low Density Residential (primarily a stormwater pond site) and Medium Density Residential.
The vast majority of the recommendations in this plan address issues within this approximate area of
study. However, where practical, some connections, impacts, relationships and transitions to areas
immediately adjacent or close-by were also studied and addressed in this plan.
Community Engagement and Planning Process
Community engagement, the active involvement of community members in the planning and design
process, is a required step in the development of small area plans in the City of Edina. “Community
members” is broadly defined to include all stakeholders with an interest in the study area. Included
would be residents, property owners, business owners/operators, city officials and staff.
The City of Edina additionally requires that its small area planning and design process should be
“citizen-led,” where the roles and responsibilities of participants are defined as follows.
“Planning Team or Work Group:
• Advises on the best methods to achieve public participation and champions the
project with the local area
• Identifies and engages neighborhood stakeholders
• Helps to identify issues and concerns in the area
• May lead or assist with the coordination and facilitation of public meetings
• Clarifies themes from information gathered during the public input process and
ensures that plan reflects those themes
• Brainstorms solutions when conflicts exists between neighborhood goals and
larger community goals
• Presents updates to planning commission after the public participation is
completed and when then the draft plan is finished
• Ensures that projects remains on schedule
Staff:
• Provides technical expertise and identifies other technical resources as
necessary
• Notifies and updates other key staff members and agencies of the
planning process
• Helps to identify issues, concerns and stakeholders in the area
• Works with the Communication division to promote awareness of the
project through marketing and communication efforts
• Ensures that direction provided through the citizen engagement plan
and small area plan guidelines are followed, and public meeting notices
are met.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 6
44th and France Small Area Plan Community Engagement and Planning and Design Process
The planning and design process was led by
the 44th and France Small Area Plan Work
Group (SAPWG), which was appointed
through an open application process by the
Edina Comprehensive Plan Task Force
(Planning Commission), at the direction of
the Edina City Council. The planning process
included a substantial community
engagement program, which was directed
and developed by the SAPWG to ensure that
the plan’s outcomes would be reflective of
the values and expectations of the public.
Specific efforts were made to engage a
representative cross-section of the
community, including residents, neighbors,
land owners, businesses, visitors, customers,
employees, city residents at large, etc.
Figure 2 illustrates the planning and design
process, as well as roles and responsibilities
of the SAPWG, Comprehensive Plan Task
Force, City Council, and the public.
Figure 2:
44th & France Planning Process
Staff and/or Consultant:
• Develops a current area profile that includes demographics, physical
conditions, land use/zoning and other pertinent information. Projects
population, demographic, economic and environmental trends for the
future.
• Works with the Small Area Planning Team (Work Group)to develop a
community engagement plan,
• Leads or assists with the implementation of the community
engagement plan.
• Identifies issues or conflicts and potential options for consideration by
the Small Area Planning Team.
• Drafts the small area plan document.
Planning Commission:
• Helps to identify issues, concerns and stakeholders in the area
• Recommends solutions for unresolved issues
• Ensures that the final document is consistent with the Comprehensive
Plan”
Small Area Plan Guidebook, City of Edina; Spring 2014.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 7
44th and France Small Area Plan Work Group (SAPWG)
The 44th and France SAPWG included nine public volunteers representing the area and surrounding
neighborhoods. The SAPWG was tasked with overseeing the major aspects of the plan’s
development, including identification and resolution of major planning issues and opportunities,
consideration of plan findings and recommendations, and leading community engagement events.
The SAPWG met eight times throughout the study process, as shown in Table 1. SAPWG meetings
were open to the public and were regularly attended by concerned residents, even though residents
were invited only to observe the meetings.
Table 1:
44th and France Small Area Plan Work Group Meeting Summary
Meeting Date Agenda Summary
SAPWG 1 5/15/17 • Comprehensive plan and small area plan overview
• Existing conditions summary
• Guiding principles introduction
SAPWG 2 5/30/17 • Issues and opportunities identification activity
• SAPWG field review recap (photo exercise)
• Planning for community meeting 1
SAPWG 3 7/18/17 • Review community meeting 1 results
• Draft guiding principles discussion
SAPWG 4 7/24/17 • Draft design concepts
• Planning for community meeting 2
SAPWG 5 8/29/17 • Review community meeting 2 results
• Technical analysis presentations (transportation and economics)
• Refined design concepts
SAPWG 6 9/12/17 • Refined guiding principles
• Draft design concepts – height, density, and neighborhood transitions
SAPWG 7 10/9/17 • Recommended approach to height and density
• Planning for community meeting 3
SAPWG 8 11/15/17 • Review community meeting 3 results
• Plan recommendations – height, public realm priorities, multimodal
accommodations
• Next steps
Community Engagement
In order to create opportunities for the community at-large
to participate in the planning and design process, a series of
three public meetings (Community Meetings) were held at
key project milestones. Meetings were widely promoted in
order to build awareness and encourage attendance. The
meetings were designed to be interactive and engaging in
order that thoughtful and meaningful input from participants
could be collected. The Community Meetings were
generally held in the evening on a weekday, from 7:00 –
9:00 pm. Table 3 summarizes each of the public meetings.
Community members work together at a
Community Meeting to identify issues in the
study area that should be addressed in the
44th & France Small Area Plan.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
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Table 2:
Community Meeting Promotion
Distribution to
Post notice on project website and social media (i.e., Nextdoor, Facebook, and Twitter)
Official city press release to media outlets
Develop flyer and hand out to businesses and residences in the 44th and France project area
Email flyer to everyone who signed up for email updates at the Comprehensive Plan kick-off meeting
Door to door flyering and promotional posters at businesses in the project area
Direct invitation to community organizations with a request to share with their colleagues/networks:
• 50th and France Business Association
• Edina Chamber of Commerce
• Edina Chinese Association
• Edina Community Foundation
• Edina Historical Society
• Edina Housing Foundation
• Edina League of Women Voters
• Edina Lions Club
• Edina Morningside Road Rotary Club
• Edina Senior Center
• Morningside Road Neighborhood Association
• White Oaks Neighborhood Association
• Country Club Neighborhood Association
• The Wanderers
• Volunteers Enlisted to Assist People (VEAP)
Property Owner and Business Interviews
In addition to the community engagement described
above, members of the project team met directly
with property owners and business within the study
area. These one-on-one meetings were conducted
to gain an understanding of issues, opportunities,
and future plans for the area, as viewed by property
owners and business owners. This effort included
seven meetings with property owners and five
meetings with business owners/operators.
Community Meeting participant selecting preferred
public realm improvements for the study area through a
“Dotmocracy” exercise.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node Page 9 Table 3: Community Meeting Summary Meeting Approx. No. of Attendees Agenda Comment Summary Community workshop 1: Discovery (6/29/17) 60 • Project overview • Guiding principles activity • Issues and opportunities mapping • The guiding principles were generally accepted (highly rated) and people tented to prioritize issues like community character, public realm, and building height • Views on building height vary with some prefer no increase in height and others prefer greater heights • There is a desire for an improved pedestrian realm and public spaces in the area • Traffic safety and congestion are a concern Community workshop 2: Alternatives Review (8/14/17) 85 • Guiding principles overview • Draft design concepts review • People felt the guiding principles should be simple and easier to understand • Opinions about height continued to vary, but many people generally support the draft concepts presented. The idea of consolidated parking and a public gathering space were well received. People also liked the idea of creating a “promenade” type circulation system and incorporating the “ecology” elements (e.g., more greening, water features, etc.) into the concepts. • People supported a mix of building types, including medium density residential types in transition areas • There is a desire to improve the pedestrian environment and “calm” or slow vehicle traffic in the area Community Open House: Design Concepts and Public Realm Priorities (10/16/17) 140 • Project overview • Guiding principles review • Public realm priorities • Design concept modeling • Building height and density were by far the most debated/commented on issues at the meeting. Approximately half favor additional building height along France Ave in exchange for enhanced public realm improvements. Most were comfortable with a three-story maximum height on France Avenue. • Those who do not favor additional height cited concerns over traffic congestion, aesthetics, and property values. • Most believe public realm improvements are important in the 44th and France area. The most commonly prioritized public realm improvements included: Wider sidewalks; High visibility pedestrian crosswalks and other pedestrian crossing enhancements; Trees, planters, and landscaping; Public gathering spaces; and Other (height of buildings/maintain neighborhood feel). • Many attendees expressed concerns with the draft design concepts. The most common comments included: too many stories (3-4 stories) or too many buildings, renderings do not reflect the character of the neighborhood, designs do not consider increased traffic and congestion, and too little space between buildings/apartments and single-family houses. • Some attendees liked the draft design concepts. Comments included: renderings reflect acceptable building height, concepts improve the pedestrian experience, in the 44th and France area, concepts increase trees, foliage, and green space in the 44th and France area. • Attendees tended to like green spaces, public gathering areas, and pedestrian improvements. People also liked more spaces for small businesses, shopping, entertainment, and dining.
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Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
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Major PlanningMajor PlanningMajor PlanningMajor Planning and Design and Design and Design and Design IssuesIssuesIssuesIssues
Several of the community engagement strategies employed during Community Meetings and
SAPWG meetings were designed to challenge community members to identify and prioritize issues
and opportunities that should be addressed in the planning process. Individuals were invited to
address issues ranging from specific physical conditions and design preferences to broader
economic and planning issues. The intent was to: 1) help the SAPWG better understand
community attitudes, values and ideas about the study area and 2) provide a framework for the
development of guiding principles, which would be used to define goals, policies and
implementation steps for the 44th and France Small Area Plan.
Below are the six major issues that emerged based on input received through the community
engagement efforts and the analysis of community members’ responses to questions.
1. Height and density
Building height and density were by far the most debated issues. Many neighbors are concerned
that increased height will further exacerbate problems they currently experience, such as traffic
congestion on main streets and cut-through traffic along their neighborhood streets. While some
residents, both immediately adjacent to and several blocks from the study area, identified building
height as an issue because of the potential for visual intrusion and inconsistency with existing
character, many more residents were concerned with traffic congestion as an externality of height
and density.
On the other side of the issue, some attending the Community Meetings are in support of
additional height (above the two-story limit in the Zoning Code) and additional density and feel
that increased building heights are necessary when developing in areas where land costs are high.
2. Parking
In general, there is an adequate supply of parking in the area, however, it is dispersed and is not
organized to realize efficiency. Some businesses have adequate parking, while others do not.
There is wide support for a consolidated parking concept.
3. Public realm
There is almost universal support for improving the public realm with amenities such as green
spaces, public gathering areas, and pedestrian improvements.
4. Community Character
It is important to the community to preserve the existing character or “look and feel” of the area.
44th and France is a unique place, which is identified by nearby residents as a “neighborhood
node.” It was strongly argued that the current character should be preserved and that it should
not be allowed to be redeveloped to resemble more intensely developed areas; e.g., 50th and
France or Excelsior and Grand. There are three potentially historic eligible structures in the area
that could be preserved.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
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5. Movement
Many feel that there is too much vehicle traffic in the area and that existing traffic operations are
unsafe. There is support for “calming” or slowing traffic to enhance the experiences of and
improve safety for pedestrians and bicyclists in the area. It is commonly supported that any
developments (remodeled, tear-down and rebuild, or new, where variances from existing zoning
and density are sought) must commit to calming traffic and ensuring, to the extent possible, that
impacts to livability along neighborhood streets are minimal.
Concerns were expressed that traffic on France Avenue should be calmed, as should development-
generated traffic that may travel along neighborhood streets.
6. Land use and redevelopment
While many acknowledge that some redevelopment is likely, there is a desire to maintain a strong
mix of land uses that include businesses that serve the neighborhood community.
Guiding Principles
Good planning and design begins with the development of guiding principles that reflect and balance
considerations such as the following:
• Community preferences
• Historical and cultural influences
• Established design precedents
• Financial suitability and market realities
• Environmental stewardship and sustainability
Guiding principles were used in the development and evaluation of alternative land use and design
concepts for the 44th and France Small Area Plan to ensure that the plan’s outcomes would reflect the
unique character of the community and, at the same time, guide future development in a realistic and
economically and environmentally sustainable direction.
The following are the guiding principles developed for the 44th and France study area. These principles
were developed specifically for this small area, based on community input received at each of the three
public meetings, ideas that emerged from the Vision Edina Bridge Workshop, discussions with the Small
Area Plan Work Group, and technical input from the consultant team.
The principles steered the preparation of the goals, policies and implementation steps in this plan, and
should be used by the city in the review of development and redevelopment proposals and plans within
the study area.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 13
Guiding Principle 1: Safe and Inviting
The area should be safe for people of all ages and all backgrounds and should be a visually attractive and
diverse place that encourages regular use and strengthens neighborhood identity.
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Guiding Principle 2: Community Gathering
The small area should provide a place(s) for people to gather and spend leisure time, whether in a
commercial or public location, and foster a community of learning. Flexible gathering space should be
explored that can be programmed to accommodate a wide range of different uses.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
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Guiding Principle 3: Circulation and Connections
The area should provide attractive and easily identifiable infrastructure that accommodates convenient
and safe movement for a variety of transportation modes, including bicycling, walking, and transit use.
The area should also have safe and convenient non-motorized connections to nearby districts. Vehicle
traffic should be managed to discourage cut-through traffic in adjacent residential neighborhoods.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
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Guiding Principle 4: Neighborhood-Oriented Business Mix
There should be a mix of businesses that provides goods and services to the neighborhood, including
small offices and commercial uses. The amount and configuration of commercial space should be
allowed to adjust in response to the market.
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Page 17
Guiding Principle 5: Housing
Housing should be provided in the study area to ensure choices for existing and future neighborhood
residents. New types of housing may be provided, including multi-family dwellings (in mixed-use
buildings with residential uses above ground level commercial or office space) or additional types such
as courtyard housing, townhomes, and live/work housing. It is felt that the market will support the
preferred housing types, which could include apartments and ownership options. Preferences should be
the types that best support the city’s affordable housing policy.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
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Guiding Principle 6: Height and Size of Buildings
Building heights should be guided by the zoning ordinance. Additional height (up to four stories, at
approximately 15 feet per story) may be considered, depending on their location and relationship to
other buildings around them. (Building heights above the two story limit detailed in the existing zoning
ordinance will be considered for approval if a developer agrees to implement study area-specific and
project-specific improvements that are detailed in this small area plan’s guiding principles, goals, and
policies.)
A graceful transition should be provided between
France Avenue, where the greatest heights in the
study area would be permitted, to existing housing
immediately adjacent to the study area where no
more than two stories will be permitted. A graceful
transition in building height should: a) ensure
appropriate massing and scale of the highest
buildings, b) ensure that the highest buildings
minimize their impact on the public realm, and c)
ensure a smoother transition of scale from the
highest buildings to neighboring residential
communities where roof tops are likely to not be as
high. Graceful transitions may be achieved, but not
limited to, building step-backs, building shoulders,
landscape buffers and/or courtyards, etc.
An exception to the above-stated two story height
limitation may result from topography within the
study area. This is particularly the case at the
northwest corner of France Avenue and 44th Street,
where the first residence on the north side of 44th
Street is located on a hill that places its roof top well
above those of commercial buildings that front on
France Avenue. In this case, a new development
immediately to the east of the first residence could
be higher than two stories (but no higher than three
stories), even though the building would front on
44th Street. In any case, a graceful transition must
be provided between any new building and the
existing residence that is located on the hill.
A similar situation exists on Sunnyside Road where,
on the north side of Sunnyside Road, the first single
family home outside the study area sits on a hill. In
this case, consideration for approval should be
given to an adjacent new building if its proposed
three story height is lower than the height of the
single family home.
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Guiding Principle 7: Parking
Parking should be hidden from view behind or beneath buildings on the west side of France Avenue.
The large parking lot with multiple owners between Sunnyside and 44th Street should be reimagined as
a “community parking facility”5 that accommodates parking for the study area (district). This
community parking facility should be designed to double as gathering space and should have the
flexibility to change over time, as other modes of transportation, such as ride-sharing, become more
common and fewer parking spaces are needed.
5 Parking facility is not necessarily defined as a parking structure.
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Guiding Principle 8: Streets and Sidewalks
To create a gracious pedestrian environment, sidewalks should be widened as much as possible.
Buildings should front onto the sidewalks, with few gaps and/or driveways breaking the street wall.
Street trees and planters should be located between the curb and sidewalk. Furnishings should provide
places to sit and dispose of trash and recycling. Vehicle traffic should be managed to maximize
efficiency while maintaining safety for non-motorized users.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
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Guiding Principle 9: Sustainability and Resiliency
The ‘urban forest’ should be reestablished in the study area, and more efficient, district systems for
managing storm water, harvesting energy and managing and recycling waste should be incorporated.
Design for adaptability to changing needs and trends over time should be pursued.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
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Guiding Principle 10 Visual Quality and Aesthetics in the Public Realm
The public realm should include a high level of aesthetic treatments, such as enhanced sidewalk
pavement, planters, and pedestrian level lighting. Utilities should not impede sidewalks and should be
underground, where feasible. Property owners are expected to keep their properties economically
viable and attractive until the market guides them to major changes.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
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Guiding Principle 11 High Quality Design, High Quality Materials, Respect for Existing Aesthetics,
and Innovations to Ensure Sustainability in the Private Realm
High quality architecture is required in the study area, in terms of design, materials, and energy
efficiency, which will contribute to sustainability. The design of remodeled and new buildings in
the study area shall reflect attention given to balance, proximity, alignment, repetition, contrast
and space. Materials used in the construction of remodeled and new buildings shall harmonize
with materials and design features used in the area’s existing structures. Innovated systems should
be installed to help achieve energy efficiency.
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Small Area Plan
for the
City of
Edina’s
44th & France
Neighborhood Node
Chapter 2
Community
Context and
Demographic
Characteristics
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 25
2. Community Context and Demographic
Characteristics
Community Context
The study area for this plan is primarily a commercial node around the intersection of West 44th Street
and France Avenue South. This includes parcels fronting on these streets, as well as Sunnyside Road,
which also intersects France Avenue within the node. It serves surrounding neighborhoods with a range
of retail and services. The commercial node is a subset of a larger commercial area, which extends
across the city boundary into Minneapolis. Since this area is fairly small, this plan provides an overview
of the surrounding area to put it in context. For the purposes of this analysis, this plan looks at data for
the area within a half mile radius of the intersection of West 44th Street and France Avenue South, as
shown on Figure 3.
The half mile distance was chosen based on the typical standard for a walkable community around a
destination. The actual primary market area for 44th and France is likely somewhat larger, particularly
based on the full extent of the commercial area, including the Minneapolis portion. That said, there are
competing areas nearby to the north (Miracle Mile in St. Louis Park), east (Linden Hill in Minneapolis),
and south (50th and France in Edina/Minneapolis). However, the economics and predominantly
residential character of the area have ensured it has remained an active and largely full commercial
node for years.
This half mile radius area includes portions of three primarily residential Edina neighborhoods –
Morningside, White Oaks, and Country Club. Since 44th and France is located up against the city
boundary, the area also includes portions of Linden Hills and Fulton neighborhoods in adjacent
Minneapolis. While this plan does not provide any guidance for Minneapolis, the data profile includes
information from that area because it is an important part of the context for the 44th and France node.
Main Ideas:Main Ideas:Main Ideas:Main Ideas:
• Younger families. Compared to city averages, this area has a larger proportion of families with young
children. This reflects access to high quality schools (in both Edina and Minneapolis), and access to
parks and other family oriented amenities.
• Older buildings. Encompassing some of the oldest areas in Edina, the building stock here is much
older than citywide. As a substantial percentage is well maintained, even historic, homes – it is likely
expected to stay that way.
• Neighborhood center. The placement of 44th & France is in middle of a predominantly residential
area. This makes it a natural hub for neighborhood-serving retail and services for the immediate area
– uses which dominate the business mix in the area.
• Prosperous location. The area continues to be affluent and desirable. This strong income base has
ensured continued vitality in the commercial node.
• Potential growth. While opportunities for substantial infill development are limited, the nature of the
area suggest high demand for new housing and businesses where there is potential.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 26
Figure 3:
Demographic Analysis Area
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 27
Demographic Profile
Population and HouseholdsPopulation and HouseholdsPopulation and HouseholdsPopulation and Households
The population of this area has increased modestly over the past 15+ years, going from around 4,800 in
2000 to around 5,100 in 2016. The household size has increased as well, remaining slightly above the
citywide average at around 2.4. The area is also younger than the city as a whole, with a median age of
41.7 compared to a citywide median of 46.7. This reflects higher percentages of children under 18 as a
proportion of the population.
The daytime population in 2016 is around 3,400, including both residents and workers. This is lower
than the base population, reflecting a net loss of population during the daytime due to commuting
outside the area. Daytime population is important in part because it helps support retail and service
businesses during the day, such as places for lunch and errands.
Race and EthnicityRace and EthnicityRace and EthnicityRace and Ethnicity
The racial makeup of the population is slightly less diverse than the citywide average and is
predominantly white. However, the population is becoming slightly more diverse over time – going
from 92 percent white in 2010 to 90 percent in 2016. The largest gains have been in the Asian American
population, followed by the African American population.
Around 2.7 percent of the population identifies as Hispanic/Latino (Spanish-speaking).
Age and Household Size
The age distribution of this area is substantially younger than Edina as a whole, with more children
under 9 and people between the ages of 25 and 55. The median age is 41.7, compared to a citywide
median of 46.7.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 28
This quite likely reflects the inclusion of the Minneapolis side of the area. In Minneapolis, the median
age is 32.7 overall.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 29
The average household size in this area is 2.41 persons per household, which is higher than both the
citywide numbers for Edina (2.32) and Minneapolis (2.25). This likely reflects the predominantly single
family detached nature of the housing stock in this area, which tends to have higher household sizes
than multi-family attached housing.
Household Type and ProfileHousehold Type and ProfileHousehold Type and ProfileHousehold Type and Profile
Around 62 percent of households in this area are family households, with around 8 percent classified as
non-family households (unrelated individuals living together). Approximately 30 percent of households
consist of one person living alone. Around 34 percent of households have children present, higher than
the citywide average and reflecting both the higher household size and the lower median age.
According to the Tapestry profile for the area, the top three subgroups represented here are:
• Urban Chic – Professional households that live a sophisticated, exclusive lifestyle. They are a mix
of married couple families and singles.
• Emerald City – Young, mobile residents of lower density neighborhoods in urban areas. Well
educated and employed, they are more likely to rent.
• Professional Pride – Well-educated career professionals with upscale suburban lifestyles. Many
work long hours and have school-aged children.
Income
The median household income for this area is around $105,000, higher than the Edina citywide median
of around $90,000. This may reflect the predominance of working age people in this area, with relatively
few retirees. By contrast, the Minneapolis citywide median income is around $52,000.
Housing Profile
The majority of residents in this area (74 percent) live in single family detached homes. There are a
modest number that live in townhomes or duplexes.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
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The area is predominantly owner occupied, with 72 percent of the housing units owned by their
resident. In contrast, about 24 percent are renter occupied and 4 percent are vacant. The percentage of
owner occupancy has declined slightly in recent years, though it remains high.
The majority (59 percent) of the housing stock in this area was built before 1939, reflect the old,
established neighborhoods in both Edina and Minneapolis. The median year that structures were built
was 1940. This is much older than the city has a whole, reflecting the fact this is one of the oldest areas
of Edina. A modest number of new units since 2000 (5 percent) shows the impact of the teardown trend,
as older homes are demolished and replaced with new structures.
In contrast to the age of the housing stock, the majority of residents living in this area (60 percent) have
moved here since 2000. Around 11 percent of the residents have been here since before 1980 – almost
all of which are owner occupants. Citywide, the median year for residents moving to their current home
is in the early 2000’s.
The median home value for this area is around $404,000, lower than the citywide average at $431,000.
The median rent is $1,023, which is comparable to the city median.
44th & France: Housing by Type, 2010-14
1 unit, detached (74.1%)1 unit, attached (3.4%)2 units (6.8%)
3 or 4 units (0.7%)5 to 9 units (2.9%)10 to 19 units (5.9%)
20 to 49 units (1.5%)50 or more units (4.0%)
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
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Economic Profile
Jobs in the Area
The area has around 390 businesses with 3,400 employees. Compared to the resident population of
about 5,000, there is a ratio of 0.68 jobs per resident. This is largely due to the fact that the commercial
node is fairly compact and largely surrounded by residential neighborhoods.
Retail trade employs around 43 percent of the workers in this area, with services following at 35
percent. The retail predominance reflects the business mix in this area, and is higher proportionately
than the city overall.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
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Workers in the AreaWorkers in the AreaWorkers in the AreaWorkers in the Area
In terms of the employment of people who live in the area, the employment rate is very high – with only
3.9 percent of the labor force identifying as unemployed. Around 55 percent of the residents work in
services, followed by 15 percent in finance, insurance, and real estate – consistent with citywide
averages. Only a modest percentage are employed in retail, suggesting that most retail workers here
commute from somewhere else.
Workers in this area commute from a wide distribution of places. The most common home
communities for commuters are Minneapolis (24.2 percent), Edina (9.0 percent), Bloomington (5.1
percent), and St. Paul (4.6 percent). Conversely, the same four cities are the four most common
destinations for residents commuting out of this area to work: Minneapolis (36.7 percent), Edina (7.4
percent), Bloomington (6.4 percent) and St. Paul (5.4 percent). (Source: Census LEHD 2014)
The 44th and France area sits in a largely residential area in northeast Edina, with a modest
concentration of employment.
Small Area Plan
for the
City of
Edina’s
44th & France
Neighborhood Node
Chapter 3
Land Use and
Urban Design
Framework
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 33
3. Land Use and Urban Design Framework
Current Conditions
Existing Land Use and ZoningExisting Land Use and ZoningExisting Land Use and ZoningExisting Land Use and Zoning
The core of this study area is a neighborhood commercial district, characterized by 1-2 story small
storefront commercial buildings. These buildings directly front on the sidewalks, with parking to the
side and rear of the site. The business mix varies: at present, it includes a coffee shop, dry cleaners,
fitness facility, barber, clothing store, and several restaurants – among other uses. One of the buildings
is mixed use, with commercial on the ground floor and apartments on the second floor. There is a range
of complementary retail uses – including a grocery co-op, daycare, and garden center – on the
Minneapolis side of the commercial district.
The predominant zoning is Planned Commercial District 1 (PCD-1), which allows a range of retail and
service uses, and Planned Office District 1 (POD-1), which allows a range of offices, clinics, and
institutional uses. A few additional parcels are zoned Planned Commercial District 4 (PCD-4) and Planned
Residential District 4 (PRD-4).
The commercial area is surrounded for the most part by single family residential neighborhoods, in both
Minneapolis and Edina. A few smaller scale multi-family developments are located along France Avenue
South, to the north and south of the district.
The land use pattern is the study area is shown in Figure 4 and the related table.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
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Figure 4:
Study Area Land Use Pattern
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
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TABLE 4:
LAND USE : YEAR BUILT AND TYPE
# Building Type Year Built Current Land Use (as of 2017)
1 1956 Medical office – dentist
2 no building n/a Stormwater pond
3 no building n/a Stormwater pond
4 1950 Medical office – other
5 1952 Medical office – dentist
6 1920 Home builder/contractor - commercial
7 1948 Medical office – family physician
8 1956 Medical office – sports medicine
9 1972 Storage garage
10 1948 Restaurant
11 1938 Service business – real estate
12 no building n/a Parking lot
13 1936 Service business – dry cleaners
14 1924 Service businesses – tanning and portrait studio
15 2010 Retail business – multi-tenant space
16 no building n/a Parking lot
17 1968 Service business – fitness club and yoga studio
18 1956 Service business – photo and imaging store
19 1928 Service business – dry cleaners
20 1920 Retail and apartments – barber, clothes, coffee, and bagels
21 1927 Office and retail – office for clothing business and retail shop
22 1982 Residential condominiums
23 1920 Restaurant
24 2010 Retail business – multi-tenant space with bank
25 no building n/a Parking lot
= One Story Commercial – Retail, services, offices
= Two Story Commercial – Retail, services, offices
= Two Story Vertical Mixed Use – Residential over retail/services
= Multi-family Residential – Condominiums
Property Ownership, Value, and Condition
While there is some common ownership on a few properties, most are separate owners. This means it
is less likely they will be assembled for a larger redevelopment project.
The real estate in this area is moderate value on a per acre basis, compared with other commercial
districts in the City of Edina. One common way to determine how attractive a property is for
redevelopment is to look at the ratio of the underlying land value compared to the total assessed value
of the land and any building(s) combined. Properties where the percentage of value held in the
underlying land is high are more attractive for acquisition and redevelopment. Thus, it is the value of
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 36
land within the study area, compared to the combined total of land and buildings that will influence
property owners’ decisions about the future.
Based on this metric, the property with the highest land-to-total value ratio is the dry cleaner at the
corner of Sunnyside and France. Another site identified is a surface parking lot associated with a
restaurant on Sunnyside – but the availability would be dependent on the needs of the restaurant for
that space.
The majority of buildings in this area have been determined to be in average to good condition. This
reflects the fact that most are older buildings, but are in reasonably good repair. The exceptions are two
buildings that were ranked only “fair” – the dry cleaner at the corner of Sunnyside and France, and the
photo store at the corner of 44th and France. Both are aging buildings with a moderate amount of
deferred maintenance.
Recent and Proposed Development
Two properties on France near the southern end of the study area (#15 and #24 on Figure 4), recently
have been redeveloped as a one-story multi-tenant shopping center. There are a few other potential
sites that may redevelop in the study area, as well. All would require relocation of existing businesses.
Currently, there are no additional proposed developments in the study area.
Trends and Challenges
Input from the community, real estate market conditions, and existing physical conditions all inform the
development of the goals and policy framework for this plan. Below is a review of some physical
conditions that factor into land use and community design decision making in the study area:
• Split geography of commercial district. As mentioned, 44th and France is a single node that
straddles a city line. The fact that there are two municipalities (Edina and Minneapolis) adds to
the challenges of developing a cohesive identity and framework for the area. While this plan
only covers the Edina portion of the study area, most users of the district (including residents,
customers, and businesses) will experience it as part of a larger whole. The lack of coordination
across France Avenue is an issue for both public and private sector stakeholders at this node.
• Aging structures. Older properties are often not up to modern standards for potential business
tenants. Renovating them to meet current needs – for instance, ensuring Americans with
Disabilities Act (ADA) compliant accessibility – can be expensive and complicated and may be
too much for some smaller businesses to undertake. However, these buildings do provide
character and charm. While the majority of the buildings are in average to good condition, two
have experienced significant deferred maintenance and are ranked as fair..
• Managing transitions. The compact mixed use nature of this district means there is a number of
transitions between use and scale. This is particularly the case given the predominantly single
family residential nature of the surrounding neighborhood, which is immediately adjacent to
this business district with little separation or buffering.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
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• Small and constrained sites. The small scale of the parcels within the study area is not entirely a
drawback as this lends itself to a relatively comfortable pedestrian scale and supports the
relative ease of pedestrian circulation and walkability, although it recognized that pedestrian
circulation and walkability issues do exist. The size of the sites, however, does pose a challenge
in the case of redevelopment, as small sites are not always economically viable for
redevelopment, particularly if there is a desire to accommodate parking on-site. While parcels
can be assembled, it is often logistically complicated and expensive to do so. The newest
development in the area has parking in front of businesses, which is functional, but changes the
pedestrian character of the district.
• Limited parking for businesses. While not strictly a land use challenge, this limits the type of
uses that can be located in a commercial area. This is further complicated by the fact that much
of the surface parking in the district is dedicated to specific businesses.
• Lack of streetscape and greening. While the district has full sidewalks, there is a lack of
greening and other public realm enhancements. This is in part due to the fairly narrow sidewalk
space, which limits opportunities for additional enhancements without additional width being
added to the public realm.
Goals and Policies
The following is a policy framework that provides guidance for both public and private investment in the
study area. This reflects the opinions and values of stakeholders expressed during the planning and
design process, previous planning contexts, and existing policies.
The study area will continue to grow as a mixed use neighborhood node of housing and commercial
development guided by market forces and trends, property owners’ decisions, the policies and
guidelines of this plan, and the Edina Comprehensive Plan. Though it is expected this node will include a
larger proportion of residential than it does currently, the exact pattern of land use over time will be
driven by market forces and private development decisions. Current uses of land may, of course, remain
as they are until owners decide to make a change.
Land Use and Community Design Goals
1. Maintain and Strengthen the Core. Continue to support the concentration of activity and
neighborhood-serving businesses at the intersections of France Avenue with 44th Street and
Sunnyside Road. Any new buildings introduced at corners of these intersections should include
street-level retail, commercial or other active spaces that interact with the sidewalk, with
windows and doors, and facilitate pedestrian activity.
2. Buildings Interact with the Public Realm. Ensure that ground-level frontages throughout the
node are carefully designed with a pedestrian scale and character that interact with the public
realm, encouraging beauty, safety, informal interaction, walkability, and a sense of place.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
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Require additional investments in the public realm alongside with new and renovated
development to create new or improved public spaces.
3. Graceful Transitions. Encourage the scale of buildings on France Avenue to transition from
center to edge, with the largest buildings located near the intersections of France Avenue/44th
Street and France Avenue/Sunnyside Road and comparatively smaller buildings between these
two intersections. Moreover, require transitions in scale between buildings on France Avenue
and the surrounding single-family neighborhood. Require that redevelopment adjacent to
single family homes is designed with sensitivity to mitigate any impacts on neighboring
properties.
4. Flexible Evolution of Land Uses. Allow existing land uses to evolve in response to the market’s
changing over time. (Current land uses may, of course, remain until owners decide to make a
change.) Allow for flexibility in land use guidance to allow for a compatible mix of uses. Allow
transitions in building scale to bring additional residents, business activity, investment, and
vitality to the node.
5. Minimize Impact of Automobiles. While vehicles must be accommodated conveniently and
safely, the character of this area is that of a walkable traditional neighborhood node.
Discourage building types with a predominant auto orientation, such as buildings with drive-
through lanes, gasoline stations, and similar uses. Likewise, require that on-site parking lots will
be located to the side or rear of buildings, unless site constraints do not allow this to be the
case.
Policies for Land Use and Community Design
1. The City will review development applications of all future projects within the boundaries of the
44th and France neighborhood node to ensure compliance with:
• City of Edina Code of Ordinances, including Sec. 36-1214. Maximum Building Heights,
• Other pertinent land use regulations, and
• Land Use and Design Principles outlined on pages 12 through 23 of this small area plan.
2. The City will consider new development that changes current and permitted land use scale and
intensity, consistent with the process described below.
As defined in the City of Edina Code of Ordinances, the 44thStreet/France Avenue Small Area
Plan study area is located within a Building Height Overlay District-2. According to the Code
(Sec. 36-1214. Maximum building heights), building heights within this district shall be
determined by required setbacks, but shall not exceed two stories or 30 feet, whichever is less.
In Table 4.3 (Future Land Use Categories), the City of Edina 2008 Comprehensive Plan identifies
the 44thStreet/France Avenue small area as a Medium Density Residential (MDR) area where the
range of density is 5 to 12 dwelling units per acre.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
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The 44th Street/France Avenue Small Area Plan allows consideration for approval to be given to
proposed developments where height exceeds the maximum stated in the Zoning Ordinance and where
proposed density exceeds the maximum detailed in the 2008 Comprehensive Plan. In such cases,
consideration shall be given where:
• Proposed heights are within a range of three to four stories along France Avenue and two to
three stories along Sunnyside Road and 44th Street;
• Proposed densities are appropriate, based on building height and lot area; and
• The developer addresses and demonstrates willingness, the means, and a commitment to invest
in the public realm within the small area.
Two categories of investment commitments are outlined below: Category 1 - Required Investment
Commitments and Category 2 – Discretionary Investment Commitments. A developer must contribute
to (invest in) the public realm for each item listed under Category 1 in order for his/her development to
be considered for additional height (up to three or four stories) and greater density (more than 12
dwelling units per acre).
Category 1 – Required Investment Commitments are further divided into two sub-categories: 1) Study
Area-Wide Investments to the Public Realm and 2) Project-Specific Investments to the Public Realm.
Category 2 –Discretionary Investment Commitments offers the developer a list of public realm
improvements he/she can choose to invest in or not.
Category 1 – Required Investment Commitments
• Study Area-Wide Improvements to the Public Realm:6
- contribute to the costs of burying utility lines
- contribute to the costs of developing and maintaining and operating the proposed district
parking facility/public gathering space
- contribute to the costs of constructing and maintaining the proposed woonerf, access streets,
and internal circulation streets serving the proposed district parking facility
- contribute to the costs of treating stormwater in the northwest corner of the district parking
facility
- contribute to the costs of treating surface water runoff that will result from construction of the
proposed district parking facility
- contribute to the costs of installing and maintaining lighting and security measures at the
proposed district parking facility
- contribute to the costs of enhancing, installing, and maintaining pedestrian crosswalks
- contribute to the costs of designing and constructing recommended traffic calming devices
along neighborhood streets west of France Avenue.
- contribute to the costs of constructing and maintaining transit shelters at bus stops on France
Avenue
6 Study-Area Wide Improvements to the Public Realm are improvements that will be implemented throughout
the entire Small Area. Developers within the study area will be charged a fee based on factors including but
not limited to: proximity to the improvement and rough proportionality as to the use of the improvement.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 40
• Project-Specific Commitments:7
- Improve sidewalks, install street furniture and pedestrian scaled street lighting, and plant street
trees and other vegetation directly adjacent to the development
- Improve the transportation system immediately adjacent to the development (e.g., traffic
control devices, traffic signals, constructed/reconstructed curbs and sidewalks, etc.) that will be
required to mitigate impacts of traffic that is generated by a specific development
- implement traffic calming strategies and infrastructure immediately adjacent to the
development to help ensure safety and security for motorized vehicles, bikers, and pedestrians
on streets within the small area
- provide a graceful transition to the neighborhood
- meet conditions in the City’s affordable housing policy
Category 2 – Discretionary Commitments
- implement travel demand management strategies to reduce automobile trip generation
- implement infrastructure and programs to encourage building users to ride the bus or ride
bicycles (e.g., provide parking for bicycles)
- implement state of the art methods and infrastructure for treating surface water runoff on the
development parcel in an ecologically sound manner
- implement shared parking strategies and facilities
- construct underground parking
- provide vehicle-electric charging stations in garages where residential parking will be provided
- implement LEED building design standards and efforts to help ensure the City of Edina achieves
its energy self-sufficiency goal
- provide public art
- ensure high quality architecture
Specific actions a developer will take and specific projects a developer will initiate and complete should
be documented in a formal development agreement if a developer is allowed to exceed heights and
densities stated in the Code or Ordinances and the 2008 Comprehensive Plan.
Future Land Use
The future land use plan for the study area is shown in Figure 5. For the primary land uses, the plan is
largely consistent with existing future land use guidance through the existing comprehensive plan. The
one change is to adopt the designation of Neighborhood Node (as shown in the Wooddale/Valley View
Small Area Plan) to replace the previous designation of Neighborhood Commercial.
7 Project-specific commitments include improvements to the public realm that are intended to: 1) mitigate the
immediate impacts of a specific project on livability and/or 2) enhance livability directly adjacent to the
project. They additionally include commitments to meet City of Edina goals.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
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Figure 5:
Future Land Use Plan
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
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Similar to the Neighborhood Commercial category, the Neighborhood Node category supports
neighborhood serving businesses. It encourages small- to moderate-scale businesses that serve
primarily the adjacent neighborhoods. Primary land uses should be retail and services, offices, studios,
and institutional uses.
In addition, designation as a Neighborhood Node provides:
• Predictability for Current Landowners. Supports current owners’ efforts to invest in
improvements their properties by providing a predictable planning framework for the area.
• Flexibility for Redevelopment. Provides greater flexibility to the development market by more
explicitly encouraging the inclusion of needed housing.
• New Gathering Space / Placemaking. Encourages intentional integration of landscaped open
space and new formal public spaces.
• Protection of Community Values such as Scale, Walkability and Character. A set of
Development Guidelines protects the scale, walkability and character of the existing area by
regulating the relationship of buildings-to-streets and the transition of building heights from
node-to-neighborhood.
Table 5
Future Land Use Categories in Study Area
Land Use Category General
Description
Development Guidelines Density
Guidelines
Neighborhood Node In general, small-
to moderate-scale
commercial,
residential or
mixed use
buildings serving
primarily the
adjacent
neighborhood(s).
Primary uses
encouraged are
neighborhood-
serving retail and
services, offices,
studios,
institutional and
residential.
Building footprints generally less than
20,000 square feet (or less for
individual storefronts).
Parking is less prominent than
pedestrian features.
Encourage underground parking (for
comparatively larger developments),
district parking for smaller
developments, and open space
linkages where feasible; emphasize
enhancement of the pedestrian
environment.
Encourage development to comply
with the 44th and France
Neighborhood Node Development
Guidelines*:
A. Building Height Limits Plan
B. Building Frontage Guidelines
C. Gathering Space Guidelines
D. Site-Specific Guidelines
E. General Guidelines
Residential density
of 12+ units per acre.
(Densities are further
constrained by the
parameters of the
Building Height
Limits Plan*).
Maximum Floor Area
Ratio (FAR) per
zoning code.
Low Density Residential See Edina Comprehensive Plan
Medium Density
Residential See Edina Comprehensive Plan
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
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A.A.A.A. Building Height Limits Plan Building Height Limits Plan Building Height Limits Plan Building Height Limits Plan
This plan establishes new height limits for the Neighborhood Node, shown on Figure 6. Generally:
• Height Limits along France Avenue, Sunnyside Road, and 44th Street. Buildings that front on
France Avenue may be allowed up to four stories high, not to exceed 60 feet. Buildings on
Sunnyside Road and 44th Street may be allowed up to three stories high, not to exceed 45 feet.
• Graceful Transitions to Surrounding Neighborhood. The transitions in height from a four-story
maximum along France Avenue must result in a maximum height of two stories, not to exceed
30 feet, adjacent to the residential neighborhood. Likewise there must be a transition in height
from a three maximum, along Sunnyside Road and/or along 44th Street, to a maximum height of
two stories, not to exceed 30 feet, adjacent to the residential neighborhood.
An exception to the graceful transition to a maximum of two stories along Sunnyside Road and
44th Street will be considered where the topography of a development site would place the
height of a new three story building beneath the height of an adjacent residential home in the
neighborhood to the west.
Previously, the study area was covered by Building Height Overlay District 2 (HOD-2), which specified
that “building height shall be determined by required setbacks, but shall not exceed 2 stories or 24 feet,
whichever is less.” This new guidance supersedes that previous designation.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 44
Figure 6:
Maximum Building Heights within the Study Area
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 45
B. Building Frontage Guidelines
The location of a range of appropriate frontage types is depicted by Figures 6 and 7. These
guidelines do not address style or building vernacular but will ensure that streets are lined with
ground level features that contribute to active, safe and walkable streets. Generally:
• Building-to-Street Relationships. Figure 7 illustrates six frontage types: Storefront, Doorway,
Stoop, Shared Entry, Porch, and Common Lawn. These frontage types are based on successful
historic precedents found in many older, multi-modal neighborhoods of Edina, including the
44th and France Study Area, and throughout the Twin Cities and the Midwest.
Figure 8 illustrates the locations of three context areas within the study area. The context areas
are Node, Transitional, and Neighborhood.
• Node to Neighborhood Transitions. A Key of Preferred Frontages by Context Area, shown
immediately below, is presented as a matrix that identifies how the six frontage types should be
applied within each of the three context areas. The frontage types are keyed to their
appropriate neighborhood context within the 44th and France node on Figure 7. The purpose of
the map is to guide new development toward ground level building design that maintains
visually graceful and walkable transitions from the more active areas to the quieter single-family
residential neighborhood streets.
Node Transitional Neighborhood
Storefront F1 discouraged not permitted
Doorway F2 not permitted
Stoop F3 discouraged
Shared Entry F4 discouraged
Porch F5 discouraged
Common Lawn F6 not permitted discouraged
Key of Preferred Frontages by Context Area
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 46
Figure 7:
Six Frontage Types
Source: Peter Musty, LLC
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 47
Figure 8:
Frontage Type Context Area Applications
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 48
C. Development Concepts
Figure 9, on the following page, shows figure ground views of the study area. Shown are the existing
condition and a conceptual, future condition. The conceptual plan does not prescribe or dictate what
must be built in the study area. Instead, it illustrates concepts, ideas, and design features for the study
area that were generated by community members at Community Meetings, Work Group members, and
the consultant team.
Among features included in the conceptual plan are:
• Two-level, consolidated district parking that is accessible from Sunnyside Road and 44th Street
• Flexible space that can be used as a plaza for public gathering on the parking deck that is
accessible from 44th Street
• A pedestrian promenade extending between 44th Street and Sunnyside Road
• Wider sidewalks along France Avenue
• Vegetation planted in the public right-of-way along France Avenue, Sunnyside Road, and 44th
Street
• Elimination of the free right-turn channel on the eastbound approach of Sunnyside Road to
France Avenue
• Traffic calming (narrow width roadway) along Sunnyside Road west of France Avenue
• Buildings along France Avenue, Sunnyside, and 44th Street that conform to height limitations
described on pages 43 and 44
• A variety of building types including: multi-family, mixed use, townhomes, and live/work units
Perspective views of the conceptual plan are presented on pages 50 through 53.
Buildings shown on the perspectives do not reflect any particular architectural style. Nor are the
exteriors of buildings shown on the perspectives intended to suggest materials that would actually be
used in construction. The primary purpose of the perspectives is to show the massing of buildings and
the desired relationships between buildings and the elements of the public realm, including sidewalks,
vegetation, and streets.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 49
Existing “figure ground.”
Proposed conceptual future plan.
Figure 9:
Existing Figure Ground and Proposed Conceptual Plan
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 50
Figure 10
44th and France Small Area Plan
Conceptual Perspective, Looking Northeast
Figure 11
44th and France Small Area Plan
Conceptual Perspective, Looking Southwest
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 51
44th and France Small Area Plan
Conceptual Perspective, Sunnyside Road Looking West
Figure 12
44th and France Small Area Plan
Conceptual Perspective, Sunnyside Road Looking East
Figure 13
44th and France Small Area Plan
Conceptual Perspective, France Avenue Looking North
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
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D. General Guidelines for the Entire Neighborhood Node
On-Site Access and Site Parking
Two key elements in the successful future redevelopment and development of the 44th and France
study area will be access and parking. In the future, safe and convenient access between available
parking supplies and destinations will be essential. Today, the surface lot that is located west of France
Avenue, and between 44th Street and Sunnyside Road, is a wide-opened field of asphalt. It is unstriped
in some areas, and the pavement is cracked and uneven. It lacks clearly identified circulation paths for
cars, service/delivery vehicles, and pedestrians. It also lacks security lighting and landscaping and is
generally inhospitable.
A study conducted during the planning and design process showed that there is an ample supply of
parking stalls in the study area. With the existing parking lot under myriad ownership and with fences
erected to prevent cross-destination parking, a key problem is the arrangement of existing parking.
General guidelines pertaining to parking and access are listed below.
• Encourage Underground Parking. Residents’ parking should be located under the buildings
to the extent allowed by market conditions.
Figure 14
44th and France Small Area Plan
Conceptual Perspective, France Avenue/44th Street, Looking North
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 53
• Visually Buffer Surface Parking Lots. Commercial parking should be behind or alongside the
buildings and be visually buffered by plantings so as to encourage an active streetscape.
• Display Consistent Signage: Signage pylons, window display signs, and on-site directional
signage should be consistent in terms of colors and materials. Signage should clearly mark
site access and direction for automobile and bicycle access from streets.
• Install Edge Treatments along Surface Parking Lots: Edge treatments along the borders
between private surface parking lots and the adjacent sidewalks should include a planting
strip approximately two feet wide (or more) and permanent planting or fencing
approximately three feet high. (Following City standards where applicable.)
• Construct Organized Parking Lots: Surface parking lots should be constructed to adhere to
City of Edina standards regarding stall width and length and aisle width. Pedestrian-oriented
lighting should be installed on islands within surface parking lots. Where applicable, clearly
defined pedestrian paths should be marked so that pedestrians can safely walk between the
parking lot and on-site buildings.
Other Improvements
As properties redevelop, the city may require investment in on-site or public facilities that
complement new projects, such as:
• Bicycle Parking. Bicycle parking facilities located close to the front doors of businesses.
• On-Site Lighting. On-site pedestrian-oriented lighting.
• Other features, as proposed by the city, neighborhood, and developers, such as historic,
cultural, or artistic elements that fit within the context of the community.
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Small Area Plan
for the
City of
Edina’s
44th & France
Neighborhood Node
Chapter 4
Heritage
Preservation
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 55
4. Heritage Preservation
History of the Area
The Morningside district of Edina (of which 44th and France is the central commercial node) is one of
the oldest areas in Edina. Developed primarily between 1905 and 1936, it grew up around the former
Como Harriet Streetcar line. In 1920, it voted to secede from the still largely rural Edina to form its own
independent village, with the intent of providing amenities more appropriate for a professional streetcar
suburb. It was eventually combined with Edina in 1966, based on considerations of efficient provision of
water and sewer service. The area still retains some of its own character and identity.
The buildings in the 44th and France study area were constructed (and redeveloped) incrementally over
a period of time, ranging from the 1900’s through the 1980’s. This represents a commercial district that
has served the area for many decades, with numerous changes over time to suit current tenants and
customer preferences. Although there have been some modifications to the original buildings since
then, most appear to still represent elements their original character. The range of time periods and
styles gives the area an eclectic and unique style.
Historic Properties
There are three properties in the study area that are determined to be eligible for City of Edina Heritage
Landmark designation8. As of today, the owners of these properties have not pursued this designation.
The three properties are:
• Odd Fellows Hall, 4388 France Avenue South – Constructed 1900-1950, listed 1980
• Commercial Business, 4400-4412 France Avenue South – listed 2012
• Convention Grill, 3910 Sunnyside Road – listed 2012
It should be noted that many of Edina’s other designated historic sites and districts are located within a
couple blocks of the study area. It is the intent of this plan to recognize and preserve the unique history
and culture of the study area.
Odd Fellows Hall
In 1918, Golden Link Lodge No. 167 constructed a two-story brick building
at the corner of France Avenue South and West 44th Street to serve as a
fraternal meeting hall. The retail spaces on the ground floor were
originally occupied by a restaurant and a dry goods store. The Odd
Fellows Hall quickly became a social center for the Morningside Road
community
As the dominant commercial structure in Morningside, the Odd Fellows
Hall has long been a landmark in that community. There are few pretentions to architectural style in
this utilitarian building. Its principal section is the two-story rectangle topped with a low hipped roof.
The one-story wing attached to the north side of the building has a flat roof.
8 It should be noted that eligibility for landmark designation places no restriction on the property owner, but
would put some limits on the government’s ability to do projects that impact the properties.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 56
Because it has been, from the time of its completion to the present day, an integral part of the
commercial, social, educational, civic, and religious life of Morningside, the Odd Fellows Hall
deserves designation as one of the city’s significant sites.
Commercial Building
Built in 1920, this two-story, broad-front commercial building was
designed especially for the corner location, with a canted main entrance
at France Avenue and Sunnyside Road. Originally the home of the
historic Griffen Drug Store, the ground floor level is now divided into
several storefronts (the property encompasses the storefronts at 4406
and 4408 France Avenue and 3900 Sunnyside Road) and the upper level
contains apartments. This was a very popular design for streetcar-related
commercial development throughout the Twin Cities.
The building is currently occupied by Bruegger’s Bagel Bakery, Caribou Coffee, and other establishments.
Overall historic integrity is very good, and the building represents an outstanding, well preserved
example of early 20th century commercial architecture. At a neighborhood level, the property is also
significant for its association with commercial development in the Westgate District.
Convention Grill
A recipient of the Edina Heritage Award in 2012, the Convention Grill is
an Edina business that has been serving the community since 1934.
Located a block off the streetcar line and across the street from the
Westgate Theater, in its early days the Convention Grill was a favorite
destination for both Morningside Road and Edina residents.
Thought of as “an historic institution” and a “landmark institution” for
many years, Convention Grill is unique in Edina for its Art Moderne
exterior architecture (including use of neon lighting) and its interior decor and atmosphere (with the
jukebox, lunch counter, and original booths); not to mention their iconic burgers, shakes and fries.
Dining establishments are notoriously short lived – new names, new locations, new owners, new menus,
new clientele. The Convention Grill defies this “convention” by giving its patrons of a sense of yesterday
– not just the exterior, but also an interior public space that has fulfilled the function of neighborhood
gathering place for more than 75 years.
Small Area Plan
for the
City of
Edina’s
44th & France
Neighborhood Node
Chapter 5
Economic
Vitality
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 57
Economic Vitality
Current Conditions
The commercial node at 44th and France is located in Edina and Minneapolis. It is characterized by
successful, independent businesses that are oriented primarily to meeting the needs of residents in
nearby neighborhoods. The array of goods and services available at the node meets many of the daily
and weekly needs of area residents – grocery, liquor, gas, dry cleaner, bank, restaurants, coffee, pizza,
barber, dentist, chiropractor, veterinarian, landscape nursery, yoga and fitness. Most businesses and
properties are also owned by people who live in the area. There has been a long term transition from
goods to more services (e.g. sporting goods and hardware transition to fitness/yoga, food and
beverage), which is typical of the economy overall.
Purchasing power of the primary customer base is strong. The two Minneapolis neighborhoods (Linden
Hills and Fulton) in the primary market area have 14,235 households with a median household income
of $104,284. The 2015 median household income for all of Edina is $98,656. (US Census: American
Community Survey 2011-2015) Edina neighborhoods proximate to the node have incomes higher than
the city median, resulting in substantial discretionary purchasing power.
There are other commercial nodes in the area – 50th and France, Linden Hills, Excelsior and Grand,
Miracle Mile, Grandview and the north end of Lake Calhoun. Each has evolved to have a somewhat
different market niche. All are vibrant and successful due to the exceptional purchasing power that
exists in the surrounding area.
There is diversity in property age and condition.
Three buildings built in the 1920s are in
excellent condition and provide a sense of
history and charm at the node. (Photos -
clockwise from the top)
• 4412 France Avenue – home for more than
two decades to Bruegger’s and Caribou
• 3918 Sunnyside Road – longtime home of
the Convention Grill, an authentic
American diner
• 4388 France Avenue – recognized as the
long-time home of Durr Ltd., a home
furnishings and accessories dealer, now
with new owners and tenants
• The Edina Cleaners building (4500 France
Avenue), formerly a theater and service
station, was approaching functional
obsolescence and in need of substantial
repair. It is now under contract to a
developer.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 58
At the south end of the district are two well-maintained properties
built as residential, which are now used for commercial purposes. In
2016 the former Rapid Oil Change site was redeveloped to build two
matching brick buildings – one for Gateway Bank at 4530 France
Avenue and a neighboring office building at 4528 France Avenue. Due
to a significant grade change, some of these properties along France at
the south end of the district also have lower level access to the rear.
Along the north side of Sunnyside and south side of 44th, there several
small professional office buildings providing dental, chiropractic and
specialty physician services. These properties were developed in the
1950s and are well-maintained and occupied. However, several factors
may create momentum for redevelopment of these properties
including: low ceiling heights, interior configurations, changes in
professional practices, small buildings located on highly valued land,
the age of property owners and related generational changes.
Behind these properties and west
of the France Avenue-facing
properties there inefficiently
used, privately-owned surface
parking. Power poles and lines,
fencing and barriers - sometimes
with adjacent weeds and
volunteer trees - contribute to a
visually cluttered appearance.
Also located in this area is a
warehouse behind 4402 France
Avenue, which originally served
a sporting goods store located
at 4402. The warehouse is now
leased out to separate tenants,
with some city restrictions on
the type of tenant, due to the
lack of water and sewer service
to the property.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
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Trends and Challenges
One of the strengths of the area is its collection of independent business and property owners, and most
still involve local ownership. Many of the businesses at the node participate in the Linden Hills Business
Association, which includes businesses at three nodes: 44th and France, 44th and Beard, and 43rd and
Upton. Some property owners are members, but the emphasis is on business owners and managers
working together on beautification and landscaping, providing a pedestrian-friendly environment, event
planning and other business promotion activities.
Property values in the area are increasing and bring a related increase in property taxes. At some point
in time, all buildings need significant maintenance investments (e.g. roof, HVAC systems, etc.). It is more
difficult to justify these investments if a property is becoming obsolete in other ways. For some of the
properties, the economics of property ownership and generational change will increase the pressure for
redevelopment.
The 50th and France Association made a transition years ago under the leadership of Tres Lund to more
actively engage property owners. Property owners are a key to important long-term decisions about the
direction of a commercial node including its economic niche and tenant mix, shared parking and more
substantial investments in design and appearance.
Property owners have differing goals and circumstances. Some are focused on maintaining rental
income and minimizing expenses, others look more to enhance value long-term. Property owners who
also own the business as well as the property, often bring an integrated view of enhancing physical
space as part of the business image and business development.
A number of properties at 44th and France are aging and generational changes are occurring among
both business and property owners. Revitalization parcel by parcel will limit the potential of the area.
More active engagement among property owners can help them move toward a shared vision to
enhance the node. This always is a delicate and imperfect process, but with good leadership it is
possible to achieve a shared vision that also supports the self-interests of the individual property owners
and enhances their property values long term.
Redevelopment economics can be challenging. Land values in healthy urban markets in the metro area
are $100 psf. Demolition, clean up costs and the cost of high quality new construction, consistent with
the Edina market, must be factored into the equation. Increased density is needed to justify the costs
associated with redevelopment. Recent examples in the market area include:
Linden 43 63 units/acre
Market Street 72 units/acre
Elements (France Ave) 72 units/acre
Ellipse & e2 (Excelsior Ave) 65 units/acre
Elmwood (36th and Xenwood) 85 units/acre
Parkway 25 (former Vescio Restaurant) 71 units/acre
The number of units per acre should not be the only consideration however, because larger units reduce
the density and smaller units increase density, and the quality and value of the units impact the tax base
generated. Redevelopment economics are complex. A project, its appropriateness for market, its
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 60
consistency with the 44th/France Small Area Plan vision (as expressed in the guiding principles) and
goals, and its contributions to the public realm must be considered holistically.
Goals and Policies
Economic Vitality Goals
• Encourage property owners to meet to explore shared interests.
• Explore the city’s interest and capacity to participate in property acquisition and assembly. Establish
city approach, goals and policies regarding potential participation in purchasing and holding
property in the area.
• Explore potential for employing a Business Improvement District or other mechanisms to support
maintenance of shared parking and other public realm improvements. Be a supportive partner if
business and property owners in the area choose to pursue options for shared improvements and
maintenance.
Economic Vitality Policies
The City will:
• Support redevelopment of obsolete properties, site assembly and revitalization of the 44th and
France node consistent with the small area plan and other city goals and policies including urban
design, transportation, transit, housing, wellness, historic preservation, stormwater management
and complete streets goals.
• Use redevelopment tools to create public realm improvements including streetscape improvements,
pedestrian and bicycle safety and amenities, public parking, utility and transportation
improvements, storm water management and park, plaza or green spaces.
• Recognize that the City is best positioned to achieve a desirable outcome for the community by
maintaining the flexibility to use redevelopment tools by taking into consideration a variety of
factors including the quality of a development, its height, density and appropriateness for the
market, tax base and the quality and character of public realm improvements.
Small Area Plan
for the
City of
Edina’s
44th & France
Neighborhood Node
Chapter 6
Parks, Open
Space, and
Natural
Resources
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 61
6. Parks, Open Space, Natural Resources
Current Conditions
There are no parks within the immediate vicinity of the study area. The nearest park in Edina is Weber
Park, located 2-3 blocks north of the study area. Weber Park has a number of athletic fields, including
baseball, softball, tennis, skating, and basketball facilities. The study area is even closer to Waveland
Park, located in Minneapolis.
Pedestrian sidewalks provide connectivity between this area and nearby parks.
There is a limited amount of greening and streetscaping in the vicinity, particularly on the Minneapolis
side.
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Small Area Plan
for the
City of
Edina’s
44th & France
Neighborhood Node
Chapter 7
Transportation
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 63
Transportation
Current Conditions
StreetsStreetsStreetsStreets and Trafficand Trafficand Trafficand Traffic
France Avenue South (County State Aid Highway (CSAH) 17) is classified as an A Minor Arterial, a road
type with regional importance due to its role in relieving, expanding, and complementing the principal
arterial system. Forty-fourth (44th) Street is identified as a Collector, a road type that provides a
connection between neighborhoods and from neighborhoods to minor business concentrations. It is
also a Municipal State Aid street (MSA). The remainder of the streets in the study area are classified as
Local Connector and Local Streets, which provide access to local properties and destinations.
Because France Avenue is a CSAH, Hennepin County receives funding assistance from the state of
Minnesota (MNDOT) for its upkeep and maintenance and, if necessary, its reconstruction. Likewise, the
City of Edina receives funding assistance for the maintenance and upkeep and potential reconstruction
of 44th Street. These streets receive funding from MnDOT, because the state’s transportation agency
views them as important roadway links that provide access to its regional roads. As a consequence of
receiving funding assistance, both Hennepin County and the City of Edina must seek variances from
MnDOT if either wishes to implement roadway designs that do not meet the state’s design standards.
Annual Average Daily Traffic (AADT) in the vicinity of the area has been fairly stable, fluctuating only
moderately over time.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
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Analyses conducted during the planning and design process
found that the change from year to year in daily traffic
volumes was almost negligible. Table 6 shows results of the
analyses. As shown, in some instances daily traffic volumes
have decreased over time.9
The traffic analyses further showed that the daily traffic
volumes on streets in the study area were consistent with
those that are expected for Minor Arterials, Collectors, Local
Connectors, and Local streets. A-Minor Arterials, like France
Avenue, have daily volumes in excess of 7,000 vehicles per
day (vpd). Local Collectors, like 44th Street, have daily
volumes between 6,000 and 7,000 vpd.
• Local Connectors, like Sunnyside and Morningside,
typically have daily volumes that are 1,000 vpd or more
• Residential Local Streets have volumes between 400 and
600 vpd.
• The traffic analyses found that increased traffic
volumes that are associated with appropriately-scaled
development and redevelopment projects could be
tolerated by the street system, with the following
caveats:
• The scale (footprint, height, and density) of development
and redevelopment projects should be appropriate to
ensure that site-generated traffic can be accommodated
at an acceptable Level of Service (LOS) by the existing
street system
• Project-specific circulation systems should be designed to
maximize traffic flow on France Avenue and minimize flow
on local streets
Pedestrian and Bicycle
• Most of the streets in the study area have sidewalks on
both sides of the street. An exception is 44th Street
where there is no sidewalk on the south side of the street
beginning at the dental offices and going west to end of
the study area. There are also sidewalks on both sides of
Sunnyside Road and Morningside Road. There are also
pedestrian signals and marked pedestrian crossings where
9 The 2017 traffic counts shown for Sunnyside Road west of France were collected during the first week of
August when school was not in session. It is suspected by some that the reported AADT may understate
actual daily traffic volumes throughout most of the calendar year.
TABLE 6
DAILY TRAFFIC VOLUMES
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
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Morningside Road, 44th Street, and Sunnyside Road intersect France Avenue. The marked crossing
at Morningside Road is incomplete, and the marked crossings at 44th Street and Sunnyside Road are
faint where the paint has deteriorated over time.
• West 44th Street is a signed bicycle route, although there are no dedicated bicycle lanes so bicyclists
share lanes with automobile traffic. France Avenue South is identified as a primary route in the
city’s bicycle plan, but there are no facilities or signage. Bicycle parking is available near the
intersection of 44th and France.
Parking
Free, off-street parking is available for residents and business patrons. Some on-street parking is
identified as two-hour limit, to encourage turnover for restaurant and retail use. Most off-street parking
is signed to be accessible only to patrons of a particular business. There has been some discussion in the
past about opening more spaces up to shared parking, but no agreement has been reached to date.
Surface parking lot west of France Avenue and between 44th Street and Sunnyside Road. The lot was divided into
13 zones (A through L) for analysis purposes. The total number of parking spaces is 209, with 39 spaces being
located in Lot D, the lot at the Odd Fellows Building.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
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In order to understand parking operations in the study area, field surveys were conducted and parking
counts were taken on several days and at several times each day. Field observations indicated there are
currently 209 stalls in the surface lots. The counts were taken on Tuesday, June 13th at 12-1pm;
Wednesday, June 14th at 4-6pm; Thursday, June 15th at 12-1pm and 7-8pm;and on Saturday, June 17th,
at 8-10am, 12-1pm, 4-6pm, and 7-8pm.
The parking supply/demand analyses conducted during the planning and design process showed that
spaces in the existing surface parking lots were not in high demand. Moreover, the parking stalls were
not occupied (utilized) during days of the week and times of the day where parking demand in a vibrant
commercial node would be expected to outstrip the available supply.
Results of the parking counts and analysis showed that the parking lots were never more than 53
percent full, including Lot D, the Odd Fellows lot. When the Odd Fellows lot was excluded from the
analysis, the main surface lot between 44th Street and Sunnyside Road was never more than 37 percent
full. It was learned that some of the lots will have high utilization percentages for short periods of time;
for example, Lots A, B, E, F, G, and I. These utilization rates ranged between 45 percent and 100
percent. Fairly reliably, however, these comparatively higher utilization rates were offset by low
utilization rates in Lots C, H, J, K, and L. The utilization rates in these lots ranged between 0 and 35
percent.
Transit
A Metro Transit bus route serves the area
regularly. Route 6 runs along France Avenue,
stopping at the intersection of France and
Sunnyside Road (one short block south of 44th
Street). Route 6 provides service to the
University of Minnesota, Downtown Minneapolis,
destinations along France Avenue South, and
Southdale. Service is provided seven days a
week, with more frequent service available during
rush hours.
The bus stop referred to above is shown in the photograph to the right. As pictured, a bench on a
narrow sidewalk is provided for transit riders, who are only two feet away from the edge of the street.
It was reported that during periods of heavy snowfall, transit riders are about 2 feet away from piles of
snow that have been shoveled toward the curb. Other than the bench at this stop, transit riders at this
stop are without any other amenity.
Freight
Both France Avenue and 44th Street are truck routes, providing access to the regional highway system,
particularly via Trunk Highway (TH) 100 and TH 62.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
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Trends and Challenges
Issues identified in this study area include:
• Irregular intersection layout. The angles of intersections at some intersections – including 44th
Street and Sunnyside Avenue, and France Avenue and Sunnyside Avenue – are located at a
skew.
• Dangerous intersection for pedestrians. The free right-turn channel on the eastbound
approach to the Sunnyside Road/France Avenue intersection was reported to be dangerous for
pedestrians, because drivers accomplishing the free right-turn fail to watch for pedestrians
crossing the street. A review of crash/accident data collected by the city for the period between
October 2011 and July 2015 did show that the intersection of 44th Street/France Avenue, a
signalized intersection, had the highest frequency of crashes. None of the crashes involved
pedestrians.
• High traffic volume on France Avenue. It was reported that the peak hour volume of traffic on
France Avenue has increased even though the daily volume has gone done. It was reported that
the volume of north/south traffic on France Avenue is so high that it impacts the flow of
east/west traffic on Sunnyside Road and 44th Street.
• High volume of cut-through traffic. Residents report a high volume of traffic cutting through
the residential areas to the west of France Avenue. 44th Street, an east/west MSA street, has
the highest volume, particularly after the city implemented traffic calming devices on Sunnyside
Road two years ago.
• Lack of parking for some businesses. This limits the types of businesses that can locate in the
area and potentially puts pressure on surrounding neighborhoods due to people (employees
and shoppers) looking for on-street spots. The lack of accessible, convenient parking will limit
the extent to which businesses at the node can thrive.
• Lack of on-street bicycle facilities. No dedicated bicycle lanes serve this area, and bike racks are
only located on the northwest corner of the France Avenue/Sunnyside Road intersection.
• Lack adequate transit facilities. The northbound and southbound bus stops on France Avenue
are just stops with a bench. No shelters are provided.
• Sidewalk widths are narrow. The pedestrian environment is uninviting. The sidewalk along
France Avenue is narrow, and the presence of street furniture and periodical racks makes the
effective width so narrow that it is difficult to walk two-abreast.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
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Goals and Policies
Transportation Goals
Transportation goals for the study area are:
• Ensure safe, convenient, and efficient movement through and within the small area for all
transportation modes, including motorized vehicles (trucks and automobiles), transit buses,
bicycles, and pedestrians.
• Match transportation infrastructure and facilities to the appropriate travel purpose with intent
to:
- Improve convenience, safety and efficiency for local (External-to-Internal, Internal-to-
External, and Internal-to-Internal) trips
- Encourage through (External-to-External) trips to travel on France Avenue
- Minimize the impact of traffic on 44th Street, a local collector street
- Discourage through traffic from travelling on local connector, residential streets (e.g.,
Sunnyside Road)
• Ensure that the area's transportation system can accommodate redevelopment- and
development-generated traffic during peak periods of the day.
• Ensure that there are safe and secure places to park cars and bikes where parkers will have
convenient access to study area destinations..
• Enhance the small area's transit environment by providing amenities that make it easier and
more comfortable to wait for and use transit for the complete range of trip purposes.
• Enhance the small area's pedestrian system, including sidewalks, crosswalks, and traffic control
devices that operate to improve pedestrian safety.
• Enhance the small area's bicycle system, focusing on improvements to increase safety and
ensure that cyclists with a wide range of abilities and comfort levels are able to bike within the
small area.
Transportation Policies
In order to ensure that the above stated transportation goals are met, the City of Edina will:
1. Coordinate with MnDOT, Hennepin County, the City of Minneapolis, and Metro Transit in order
to assess and resolve transportation issues in the small area with a focus on implementing
district-wide solutions.
2. Independent of the need to address redevelopment/development proposals, the city will
periodically coordinate with other affected transportation agencies to assess and evaluate
transportation and traffic operations in the study area; including:
- Vehicle through-put on France Avenue
- Traffic signal operations (timing and phasing)
- Traffic operations, specifically the free right-turn movement on the eastbound approach to
the Sunnyside Road/France Avenue intersection
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 69
- Incidents where a high volume of regional traffic continues to cut through residential areas
on local streets
- Transit operations
- Pedestrian and bicycle operations
3. In the event the above periodic assessments and evaluations indicate there are deficiencies in
the system and/or compromises to safety and livability, the city will, independent of a
development/redevelopment proposal, address the issue(s) and, either acting alone or in
cooperation with other transportation agencies: a) conduct studies to clearly define issues and
identify alternative solutions, b) conduct design studies, and c) implement the preferred
solution(s).
4. Require the proposers of new development projects and significant redevelopment project s to
complete Traffic Impact Analysis (TIA) reports as a component of the development review
process. The geographic scope of TIA reports will be defined by the City of Edina, as will the
scope of transportation/traffic issues to address. At a minimum, the TIA reports will describe:
- Peak hour Level of Service (LOS) at critical intersections for the existing, forecast No-Build,
and forecast build conditions
- Peak hour LOS for critical roadway links where there are important friction factors, such as
transit operations, parking, and bicycle and pedestrian circulation
- On-site traffic circulation assessment for on-site parking, service and delivery vehicles, and
bikes and pedestrians
- Parking supply and demand analysis
- Travel Demand Management element where the proposer defines steps that will be taken
once the development/redevelopment is implemented to reduce automobile vehicle
demand and assist the city in reaching its automobile demand reduction goals
The scope of the TIA report (both its geography and range of issues) may be expanded beyond
the list above by the City.
5. In the event the TIA indicates the proposer's development will generate traffic that exceeds the
capacity of the street system and/or will impact adjacent residential areas, the city and project
proposer will identify mitigation measures that should be examined to determine which will
ensure that acceptable traffic operations can achieved.
Future Transportation System
Analyses conducted during the planning and design process showed that the following mitigation
measures would likely enhance the existing system’s capacity and safety and serve to reduce traffic
volumes on local streets:
• Convert France Avenue to a three-lane roadway, where a Two-Way Left-Turn Lane (TWLTL)
would serve as a dedicated northbound and southbound left-turn lane.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 70
• Install traffic calming devices at appropriate locations along Sunnyside Road and 44th Street that
will channelize traffic, slow vehicle speeds and generally discourage traffic from using these
streets for bypass routes.
• Reduce the width of general traffic lanes on residential street
Figures 15 through 18, on the following pages, illustrate these recommended improvements.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 71
Figure 15
Recommended Improvement on France Avenue
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 72
Figure 16
Recommended Improvement on Sunnyside Road
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 73
Figure 17
Recommended Improvement on 44th Street
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 74
Chicane
Narrowed
Roadway
Traffic Channelizer
Traffic
Channelizer
Neighborhood-Scale
Traffic Circle
Speed Table
Neighborhood-Scale
Traffic Circle
Speed Table
Figure 18
Traffic Calming Precedents
Small Area Plan
for the
City of
Edina’s
44th & France
Neighborhood Node
Chapter 8
Community
Facilities
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 75
Community Facilities
Current Conditions
Public Facilities
There are no public facilities located within the study area. A summary of the public facilities that serve
this area is included below:
• Schools – This area is within the Edina Public Schools district, a highly regarded and sought after
district. West 44th Street forms the boundary between the Highland Elementary and Concord
Elementary attendance area. Two private schools are located within three blocks of the study
area: Calvin Christian School and Golden Years Montessori.
• Public Safety – Police, fire, and emergency medical services are provided centrally through the
City of Edina.
• Library – Edina is served through the Hennepin County Library system. While Edina has a
centrally located library at Grandview Square, the closest Hennepin County library to the study
area is the Linden Hills Library in Minneapolis.
• Other Services – Edina has a community center, senior center, continuing education
programming, parks and recreation facilities, and other services provided citywide from
centralized locations.
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 76
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Small Area Plan
for the
City of
Edina’s
44th & France
Neighborhood Node
Chapter 9
Implementation
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 77
9. Implementation
Land Use and Urban Design Implementation
Action Lead Timeframe
The City will adopt the designation of
Neighborhood Node (as shown in the
44th/France Small Area Plan) to replace the
previous designation of Neighborhood
Commercial.
City of Edina Planning
Department
With City Council
adoption of 44th/France
Small Area Plan
The City will review development applications
of all future projects within the boundaries of
the 44th and France neighborhood node to
ensure compliance with Land Use and Design
Guiding Principles outlined on pages 12
through 23 of this small area plan.
City of Edina Planning
Department
With City Council
adoption of 44th/France
Small Area Plan
The City will consider new development that
changes current and permitted land use scale
and intensity by implement a process where a
developer must invest in the public realm (both
at the Small Area-wide scale and Project-
specific scale) in order for the proposed
development to be considered for approval.
City of Edina Planning
Department
With City Council
adoption of 44th/France
Small Area Plan
The City will consider development proposals
for approval where:
- Proposed heights are within a range of
three to four stories along France Avenue
and two to three stories along Sunnyside
Road and 44th Street and/or
- Proposed densities are appropriate, based
on building height and lot area; and
- The developer addresses and demonstrates
willingness, the means, and a commitment
to invest in the public realm within the
Small Area.
City of Edina Planning
Department
With City Council
adoption of 44th/France
Small Area Plan
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 78
Economic Vitality Implementation
Action Lead Timeframe
Encourage property owners to meet to explore
shared interests
City of Edina Economic
Development
Department and
Chamber of Commerce
With City Council
adoption of 44th/France
Small Area Plan
Explore the city’s interest and capacity to
participate in property acquisition and
assembly. Establish city approach, goals and
policies regarding potential participation in
purchasing and holding property in the area.
City of Edina Planning
and Economic
Development
Departments
With City Council
adoption of 44th/France
Small Area Plan
Explore potential for employing a Business
Improvement District or other mechanisms to
support maintenance of shared parking and
other public realm improvements. Be a
supportive partner if business and property
owners in the area choose to pursue options
for shared improvements and maintenance.
City of Edina Planning
and Economic
Development
Departments
With City Council
adoption of 44th/France
Small Area Plan
Support redevelopment of obsolete properties,
site assembly and revitalization of the 44th and
France node consistent with the small area plan
and other city goals and policies including
urban design, transportation, transit, housing,
wellness, historic preservation, stormwater
management and complete streets goals.
City of Edina Planning
and Economic
Development
Departments
With City Council
adoption of 44th/France
Small Area Plan
Use redevelopment tools to create public realm
improvements including streetscape
improvements, pedestrian and bicycle safety
and amenities, public parking, utility and
transportation improvements, storm water
management and park, plaza or green spaces.
City Planning and
Economic Development
Departments in
coordination with
developers seeking
approval of proposals
that exceed limits in
Code of Ordinances and
2008 Comprehensive
Plan
With City Council
adoption of 44th/France
Small Area Plan
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 79
Transportation Implementation
Action Lead Timeframe
Coordinate with MnDOT, Hennepin County, the
City of Minneapolis, and Metro Transit in order
to assess and resolve transportation issues in
the small area with a focus on implementing
district-wide solutions.
Coordinate with other agencies to initiate
France Avenue Corridor Study with affected
jurisdictions.
City of Edina
Transportation Planning
and Engineering
Department
With City Council
adoption of 44th/France
Small Area Plan
2019
Independent of the need to address
redevelopment/development proposals, the
city will periodically coordinate with other
affected transportation agencies to assess and
evaluate transportation and traffic operations
in the study area; including:
- Vehicle through-put on France Avenue
- Traffic signal operations (timing and
phasing)
- Traffic operations, specifically the free
right-turn movement on the eastbound
approach to the Sunnyside Road/France
Avenue intersection
- Incidents where a high volume of regional
traffic continues to cut through residential
areas on local streets
- Transit operations
- Pedestrian and bicycle operations
City of Edina
Transportation Planning
and Engineering
Department and
Hennepin County
With City Council
adoption of 44th/France
Small Area Plan
Ongoing
In the event the above periodic assessments
and evaluations indicate there are deficiencies
in the system and/or compromises to safety
and livability, the city will, independent of a
development/redevelopment proposal, address
the issue(s) and, either acting alone or in
cooperation with other transportation
agencies: a) conduct studies to clearly define
issues and identify alternative solutions, b)
conduct design studies, and c) implement the
preferred solution(s).
City of Edina
Transportation Planning
and Engineering
Department
With City Council
adoption of 44th/France
Small Area Plan
Ongoing
Small Area Plan for the City of Edina’s 44th & France Neighborhood Node
Page 80
Transportation Implementation (continued)
Action Lead Timeframe
Require the proposers of new development
projects and significant redevelopment project
s to complete Traffic Impact Analysis (TIA)
reports as a component of the development
review process. The geographic scope of TIA
reports will be defined by the City of Edina, as
will the scope of transportation/traffic issues to
address
City of Edina
Transportation Planning
and Engineering
Department
With City Council
adoption of 44th/France
Small Area Plan
Implement roadway improvements to France
Avenue that are recommended in this small
area plan
Cities of Edina and
Minneapolis and
Hennepin County
With City Council
adoption of 44th/France
Small Area Plan
2020
Implement roadway improvements to
Sunnyside Road that are recommended in this
small area plan
City of Edina
Transportation Planning
and Engineering
Department
With City Council
adoption of 44th/France
Small Area Plan
In coordination with
development proposals
Implement roadway improvements to 44th
Street that are recommended in this small area
plan
City of Edina
Transportation Planning
and Engineering
Department and
MnDOT
With City Council
adoption of 44th/France
Small Area Plan
In coordination with
development proposals