Loading...
HomeMy WebLinkAboutComprehensive Plan 1980Qr (612) 927-8861 GORDON HUGHES ASSISTANT CITY MANAGER/ EXECUTIVE DIRECTOR, EDINA HOUSING & REDEVELOPMENT AUTHORITY CITY OF EDINA 4801 WEST 50TH STREET EDINA, MINNESOTA 55424. CITY OF EDINA COMPREHENSIVE PLAN 1980 COMPREHENSIVE LAND USE PLAN LAND USE ELEMENT I. Existing Conditions A. Metropolitan Setting Edina is located within the urban service area boundaries of the metropolitan area and is classified as a fully developed inner ring suburb by the Metropolitan Council. This classification is appropriate in that essential urban services including highways, public water, storm sewer, sanitary sewer, full time fire and police protection, and mass transit service are provided and few tracts of vacant land remain available for development. Edina is bordered on the north by St. Louis Park and Hopkins, on the west by Minnetonka, Eden Prairie and Hopkins, on the south by Bloomington, and on the east by Minneapolis and Richfield. The Metropolitan System Statement identified several metropolitan systems directly affecting Edina. Sections of three intermediate arterial roadways, CSAH 62 Crosstown, CSAH 18, and T H 100 are located in Edina. CSAH 62 bisects Edina in an east/west direction. CSAH 18 generally forms the westerly boundary of Edina. TH 100 bisects Edina in a north/south direction. A principal arterial roac.;...... 1-494, is loci-; y of Edina's south boundary. Edina is served by seven regional sanitary sewer interceptors. Sewer treatment is provided by Pigs Eye and Seneca. No existing or proposed regional park facilities are located in Edina. However, trail and walkway linkage to such facilities in other cities may be appropriate. Although not addressed in the Systems Statement, Southdale Center serves as a primary regional shopping center for the metropolitan area. Likewise, Minnehaha Creek and Nine Mile Creek, which flow through Edina, are managed on a subregional basis. B. Existing Plans Edina has prepared and adopted several land use and redevelopment plans which have and continue to guide development in the City. These plans include the following: Comprehensive Land Use Plan Land Use Element Page 2 *Western Edina Plan. Adopted in 1970, this plan covers the area generally located west of Highway 100 and north of West 70th Street. *Southwest Edina Plan. Adopted in 1971, this plan covers the area generally located south of West 70th Street and west of Cahill Road. 1770 *South Edina Plan. Adopted in 1973, this plan covers the area generally located south of 70th Street and east of Cahill Road. *Open Space Acquisition Plan. Adopted in 1974, this plan provided a basis for approving a bond issue referendum authorizing the acquisition of several properties for park and open space purposes. *50th and France Commercial Area Plan. Adopted in 1975, this plan provides the basis for the 50th and France commercial area redevelopment project which is nearly completed. *Southeast Edina Redevelopment Plan. Adopted in 1977, this plan /?/7 provides an implementation program for new assisted low and moderate income housing in southeast Edina. C. Existing Land Use Total Acreage Percent Residential 5734 56 % Commercial 215 2.1% Office 72 .7% Industrial 297 2.9% Park and Open Space 1137 11.1% Quasi Public Open Space 297 2.9% Churches 92 .9% Public Facilities 133 1.3% Public Utility 31 .3% Roads 17 /11 17 %- Vacant 492 4.8% Total 10,240 100% CITY OF EDINA hennepin city minnesota god co' 600' 1200' iCi911181111ft JANUARY 1980 VACANT LED Comprehensive Land Use Plan Land Use Element Page 3 Residential The predominant land use within Edina is residential. Nearly 5,800 ,20 00 acres of land are devoted to residential uses. Residential uses include 12,375 single family detached dwellings, 686 two family dwellings, and 5,757 multi />, family dwellings. The average density of single family dwellings is approximately 1.9 dwelling units per acre. Multi family densities average approximately 7.5 dwelling units per acre. Residential development in Edina began in earnest in 1905 with the Morningside subdivision in northeast Edina. This subdivision was located in the vicinity of the Twin City Rapid Transit Company's streetcar line. The Morningside subdivision consisted of 69 lots measuring 100 feet by 300 feet. In the early 1920's, the Country Club District of Edina was platted. This area was bounded on the north by West 44th Street, on the east by Arden Avenue, on the south by West 50th Street and Minnehaha Creek, and on the west by Highway 100. The developer of the Country Club district provided contoured streets, landscaping, parks, an 18 hole golf course, and 'installed all major utilities prior to offering approximately 550 lots for sale. Protective covenants were also imposed on all lots regarding minimum valuation, architectural style, and property maintenance. The Country Club District had a profound innuence on the future residential development of Edina. First, an architectural standard was established for future developments. Second, it defined future transportation patterns for Edina in that this was one of the first suburban development which relied upon the private automobile rather than the streetcar for transportation. Third, it encouraged Edina to become the first village in Minnesota to adopt a zoning ordinance in 1929. Following the Second World War, residential development flourished in Edina. Between 1946 and 1950, almost 1900 building permits were issued. By the mid 1950's, Edina's populations were increasing at an annual rate of 2500 people. 1. ' Commercial Commercial land uses refer to uses devoted to retail sales and services. Approximately 242 acres are devoted to commercial uses in Edina. The Southdale-Yorktown regional shopping area located in southeast Edina occupies 186 acres and comprises approximately 75% of all commercial I. Setter, Leach, and Lindstrom, Inc. Historic Building Survey of Edina, Minnesota. July 6, 1979 Comprehensive Land Use Plan Land Use Element Page 4 land in Edina. This area is generally bounded by CSAH 62 on the north, Xerxes Avenue on the east, France Avenue on the west, and 73rd Street extended on the south. Two community commercial areas comprising approximately 34 acres are located in Edina. The 50th and France commercial areas was recently re- developed by Edina's Housing and Redevelopment Authority and substantial private re-investment. This redevelopment project provided additional off- street parking and substantial environmental and traffic circulation improvements. The Grandview commercial area is located on Vernon Avenue east of Highway 100. This area has been partially redeveloped recently through private reinvestment. Four neighborhood commercial areas occupying approximately 16 acres, serve as convenience shopping areas for Edina neighborhoods. These areas include the 44th and France commercial area, the 54th and France area, the Valley View Road and Wooddale area, and the Cahill Road/West 70th Street area. Office Office uses, for analysis purposes, include business and professional offices as well as hospitals and medical related uses. Nearly all office uses are concentrated in southeast Edina. Major office uses are located on the northerly and westerly periphery of the Southdale area, that part of west 76th street lying west of France Avenue, and that area lying west of Highway 100 and north of West 77th Street. Minor office uses are located within the 50th and France, Grandview, 44th and France, and Valley View and Wooddale commercial areas. Nearly all major office uses have been developed since 1965. Industrial Industrial development includes warehousing, manufacturing, office warehouses, and scientific research. Major industrial areas are located between Highway 100 and Cahill Road and south of West 70th Street, west of CSAH 18 at Valley View Road, and east of CSAH 18 at Dominick Drive. Nearly all industrial uses have been developed since 1965. Comprehensive Land Use Plan Land Use ELement Page 5 Existing Zoning The Edina Zoning Ordinance has provided the necessary mechanism for implementing the concepts contained in the comprehensive plan. The Z oning Ordinance also provides criteria and standards for the development of properties. All land in Edina is zoned and thus an "open zoning" or "unzoned" classification is not provided. In many instances, however, the R-I Single Family Dwelling District serves as a "holding zone" for properties recognized as having potential for a higher use. The Zoning Ordinance provides for the following zoning classifications and principal uses: Classification Uses R-I Single family detached Schools Publically owned institutions ,---eational facilities Religious institutions Certain utilities R-2 Two family dwellings R-3 Multiple residences with 3-12 units per building. Child day care centers. R-4 and R-5 Multiple residences with more than 5 units per buildings. R-4 and R-5 Convalescent, nursing, rest, and boarding care homes. PRD-I, 2, 3, 4, 5 Planned Residential Developments PSR-3, 4, 5 Senior Citizen Residences Automobile Parking District Parking lots and ramps Regional Medical District Hospitals Professional Offices Medical laboratories Comprehensive Land Use Plan Land Use Element Page 6 Classification (cont). Uses Office District Commercial District C-I, 2, 3, 4 Offices Financial Institutions Post Offices Private Clubs Retail sales and service Restaurants Offices PC-I, 2, 3 Planned Commercial Developments Planned Industrial District Manufacturing Scientific research Offices Warehousing SR-3,4,5, Seniors !I. Forecasts, Issues, and Implications for the r'zriod A. Population and Household Characteristics The growth of Edina's population occurred primarily during the 1950's and 1960's. During this time, the City's population increased an average of approximately 1700 individuals annually: 1940 1950 1960 1970 5855 11,443 30,413 44,046 (Source: U.S. Census) Since the early 1970's, Edina's growth rate has declined substantially due to the reduction in the amount of land available for development and declining family size. By 1978, the estimated popualation reached 48,920 and then declined, according to the Metropolitan Council, to 46,700 in 1979. Full development of vacant residential lands coupled with declining household size should result in the following population by 1990 according to the Metropolitan Council: 7 1978 1990 48, 920 51, 800 Comprehensive Land Use Plan Land Use Element Page 7 Based upon maximum development of remaining vacant residential land, the Edina Planning Department suggests a maximum 1990 population of 53,600. From an age standpoint, Edina's population is comprised of more senior citizens and fewer families with children: Retired Heads of Households (Percent of All Households) 1970 1974 1978 12.2% 12.3% 16.30 (Source: R. L. Polk Co., 1976-1978) Households with Children (Percent of All Households) 1970 1974 1978 520 " 460 380 (Source: R. L. Polk Co., 1976-1978) This trend is also illustrated by the enrollment projections for the Edina Public Schools: Enrollment Data and Projectionsp (Total K-I2 Enrollment) 1973-74 1979-80 10,587 7,506 (Source: Edina Public Schools, 1979) 1984-85 5,064 Comprehensive Land Use Plan Land Use Element Page 8 Also, the number of one person households and the number of large family households has changed substantially in recent years: One Person Households (Percent of All Households) 1974 1978 16% 22% Household with Five + Persons (Percent of All Households) 1974 1978 20% 15% (Source: R. L. Polk Co., 1976-1978) Perhaps of greatest significance is the overall decline in the average number of persons per household. Based upon Metropolitan Council projections, this decline is expected to continue through the 1980's. Persons Per Household 1950 1960 1970 1978 1990 3.48 3.66 3.39 2.82 2.59 (Source: R. L. Polk Co., 1976-1978 and Metropolitan Council Population Forecasts) Due to the paucity of vacant land, the total number of households should increase by approximately 2000 units by 1990 based upon Metropolitan Council projections. 1970 12% 1970 26 % Comprehensive Land Use Plan Land Use Element Page 9 Total Households, 1950 1960 1970 1978 1980 1990 0 9 2,9 3,289 8, 314 13, 005 17, 369 18, 000 20, 000 (Source: U.S. Census and Metropolitan Council Household Forecasts) Based upon Edina Planning Department projections, the following maximum numbers of household projections are suggested : 1979 1990 18, 818 20, 710 Professional and technical as well as proprietors and administrators continue to be the most prevalent occupations for Edina heads of household. However, the number of blue collar heads of households appears to have increased in recent years: Occupations of Heads of Households (Percent of those Employed) Professional & Proprietors & Clerical & Blue Technical Administrators Sales Collar Other 1970 21.40 37.9% 16.3% 14.0% 10.5% 1978 21.8% 34.0% 15.2% 18.4% 10.6% (Source: R. L. Polk Co. , 1976-1978) Housing cost in Edina continues to be substantially higher than the regional average: Comprehensive Land Use Plan Land Use Element Page 10 Average Single Family Home Sale Price 1973 1977 1978-79 Edina $53,716 $82,464 $105,013 Regional Average $31,060 $46,979 (Source: R. L. Polk Co., 1976-1978 and Multiple Listing Service, 1979) Likewise, average household income is substantially higher than the average for the fully developed portion of the region: Average Annual Household Income - 1977 Edina $32,200 Fully Developed Area Average $17, 900 PMk , 1976-1978) Overview of Population and Household Data Edina is experiencing and will continue to undergo a slow aging process. This process is natural and very predictable for a city approaching complete development. Edina has obviously completed its initial development phase which was characaterized by rapid residential and commercial growth during the 1950's and 1960's and the resulting need for educational, recreational, and service resources. Edina has now entered a more stable phase which is expected to continue through the 1980's. During this time, development pressures on remaining vacant lands should be strong and nearly all of these lands should develop during this time. However, many of the population and household trends which began in the mid 1970's will likely continue through the 1980's. Fewer persons per household . Declines in school age population. Declines in numbers of households with children. Stabilization in total population despite increase in number of households. Increasing elderly population. Comprehensive Land Use Plan Land Use Element Page 11 Increasing number of one person households. Increasing numbers of "empty nesters". Increasing housing costs. Due to the population and household history of Edina, many of the above noted trends may not occur as rapidly as in other fully developed cities. Edina has always been characterized by relatively high housing costs and house- hold incomes. Thus, middle aged homeowners enjoying their peak earning years always dominated Edina's age structure rather than young families with children which dominated many suburbs during their initial development phase. Although Edina has and will continue to lose school age population, middle age groups should continue to dominate thus resulting in a more stable age structure as compared to many cities. Issues and Implications The above noted population and household trends are anticipated to produce the following implications and issues from a land use standpoint for Edina in the 1980's: — I le. A ("fle.1 r4 c^- elderly housing, nursing homes, and care tadirties. -Increased need for social and medical service facilities for elderly. -Pressures to further subdivide developed single family lots due to decreasing need for large yard areas, increasing maintenance efforts, and increasing economic returns. -Pressures to convert existing single family dwellings to multiple residences due to declining household size and increasing housing costs. -Need for more adult and senior citizen oriented recreation areas. -Need for housing opportunities for "empty nesters". -Need for housing opportunities for families with children to offset losses in school age population. -Need to allow alternative uses for vacant or under utilized public school buildings. -Pressures for increased numbers of assisted units for low and moderate income individuals and families. Comprehensive Land Use Plan Land Use Element Page 12 -Pressures for lower cost housing. -Continued predominance of middle aged, upper income resident with desires to maintain Edina as a high quality residential community. -Pressures to maintain Edina's high quality, single family character. -Pressures to increase densities of residential developments in response to demand for lower cost housing, energy efficient housing, life cycle housing opportunities, and increasing land costs. _ B. Land Use Compatibility The provision of adequate buffers and transitions between dissimilar land uses is one of the most historic objectives of land use planning. In some cases, Edina has attempted to segregate conflicting land uses by maintaining adequate distances between such uses through road right of way separations or linear park and open space corridors. Also, the concept of using trasitional land uses to buffer incompatible land uses has been practiced. The use of multiple residential as a '•-sw --'ensity residential d developments and industrial or commercial development is the most common transitional use. In some cases, office developments have provided a proper transition between low density residential and high intensity uses. Earth berms, landscaping, and fencing are used to buffer undesirable aspects of parking lots and high intensity uses. From a historical standpoint, single family dwelling neighborhoods have been extensively buffered from other uses in Edina. In addition, most single family areas have been developed with relatively large lots, thus providing for large yard areas and substantial spacings between dwellings. Multiple residential uses have been allowed in proximity to some single family areas but at relatively low densities. Higher density developments have generally been completely isolated from single family neighborhoods. Issues and Implications Several trends present the following issues and implications for land use compatibility in Edina: -Pressures for subdividing developed single family lots thus changing neighborhood character. Comprehensive Land Use Plan Land Use ELement Page 13 -Pressures for greater densities for multiple residential development with potential of impacting low density areas. -Pressures for smaller lot sizes and smaller dwellings which may conflict with historical development trends. -Pressures for more multiple residences due to age structure of population and energy conservation. -Need for increased housing opportunities in proximity to employment areas for energy conservation purposes. -Pressures to reduce minimum lot size, floor area, and garage requirements resulting in dwellings of lower cost and differing character as compared to existing housing. C. Non-Residential Land Uses Commercial, office, and industrial development in Edina are relatively new and are generally in good to excellent physical condition. However, some commercial districts the 44th P's 's4 Imrsddale/Valley View area, and most notably the Grandview area are in a siate of transition and major land use changes should be expected for such an area. Issues and Implications -Pressures for a general intensification of retail uses especially in southeast Edina. -Demand for converting industrial uses to office and quasi- commercial uses. -Pressures for retaining commercial zonings for obsolete or inappropriately zoned commercial properties. -Demands for intensive development of vacant non residential lands. -Demand for intensification of existing commercial uses in community and neighborhood commercial districts resulting in parking and traffic circulation problems as well as conflicts with neighboring residential uses. -Pressure fQr expansion of small scale commercial activities into residential areas surrounding commercial activity centers. Comprehensive Land Use Plan Land Use Element Page 14 D. Employment "Employment" refers to jobs available in Edina as opposed to "occupations" which refers to jobs held by Edina residents. Employment opportunities have increased substantially in recent years due to development of office/industrial areas in Edina: Employment Opportunities (Number of Jobs) Manufacturing Retail /Wholesale Services Total • 1969 4500 8100 2800 21,300 1977 4300 8300 7200 27,900 (Source: R. L. Polk Co., 1976-1978) According to Metropolitan Council Projections, substantial increases in employment are forecast: Employment Projections 1980 36,000 1990 2000 43,000 41,000 (Source: Metropolitan Council Employment Forecasts) Issues and Implications Several land use issues and implications are anticipated due to increased employment opportunities: -Demand for increased housing opportunities to employment areas. -Pressures for housing opportunities for low job holders in Edina. -Demand for day care services. in close proximity and moderate income Comprehensive Land Use Plan Land Use Element Page 15 E. Transportation Land use issues and implications relating to traffic and transportation focus primarily on southeast Edina. In 1972, a comprehensive study entitled the "494/100 Southdale Corridor Transportation Study" was completed. This study was undertaken as a joint effort by several governmental subdivisions including Edina. This study advised that serious traffic and congestion problems would result in Southeast Edina unless land use was controlled and transportation improvements implemented. As a result of these findings, Edina has used anticipated traffic generations as the primary basis for reviewing land use proposals in southeast Edina since 1973. Although several roadway improvements have been made in this area in recent years, land use control continues to be an essential element for the alleviation of traffic congestion. Several land use issues and implications are expected as a result of transportation concerns in southeast Edina. -Pressures to develop at maximum densities as a result of high land costs which conflicts with traffic objectives. -Pressures to develop additional peak hour land uses which contributes -Need for more housing opportunities in proximity to southeast Edina employment centers to increase use of mass transit and intra-area trips. -Need to provide mixed and complementary land uses to reduce congestion. F. Energy Energy conservation will undoubtedly present an ever-increasing challenge to everyone in the 1980's. Alternative modes of transportation and methods of space heating and cooling may offer unique opportunities for energy conservation but could affect traditional development styles and land uses in Edina. Issues and Implications -Need for housing in close proximity to employment and service centers to reduce communting expenses. Comprehensive Land Use Plan Land Use Element Page 16 -Pressures for increased residential density to reduce space heating and cooling requirements per dwelling unit. Pressures for innovative building designs such as earth sheltered structures and building orientations which may not be compatible with existing developments or ordinance requirements. -Pressures for solar heating and cooling systems which may not be compatible in appearance with existing developments and which may require governmental protection of solar access. -Need for proper mixtures of land uses to reduce transportation requirements. G. Land Re-Use and Redevelopment In general, Edina's residential and non-residential properties are in good to excellent physical condition. Significant re-use and/or redevelopment of properties is not anticipated during the 1980's due to the age and condition of most developments. A detailed review of the condition .of Edina housing stock is contained in the Element of 1-";-• Nearly all industrial and office developments in Edina have been constructed since 1965. These developments are in excellent condition and should not require re-use or redevelopment actions during the plan period. Although most commercial developments are relatively new, some areas are showing early signs of blight and deterioration and must be monitored closely. The Grandview commercial /industrial area which is located west of Highway 100 and south of 50th Street, deserves particular attention due to the age of the structures and existing land uses. Although significant private reinvestment has occurred recently, this area should be studied to investigate the need for public redevelopment actions. Other commercial areas which should be monitored closely include the 44th and ranee area and the Valley View and Wooddale area. Issues and Implications -Need for City participation in redevelopment projects. -Need for alternative land uses in redevelopment areas. Comprehensive Land Use Plan Land Use Element Page 17 III. General Goals, Objectives, and. Policies Goal: The goal of the land use element is to provide for the orderly and logical development and redevelopment of lands and waters, maintain an attractive living and working environment and preserve the high quality residential character of Edina while responding to the changing needs of the population. Objective: Establish land use designations which provide a clear basis for future zoning and/or development or redevelopment of lands. Such land use designations are not and should never be construed as a "zoning" of land. These designations merely serve to define land use relationships and general locations. Policies: Establish the following residential land use designations for the purposes of this plan. *Single Family Residential (O-4 DU/acre). This designation is limited to single family dwelling acreas having minimum lot areas of 9000 square feet and U ni;rn;t 'ld rn nvinal inn areas. Specific lot area determinations will be based on tupuyrdpny, Hely' wurhood characteristics, natural features, and access. In some areas, lot sizes below 9000 square feet may be appropriate. *Low Density Attached Residential (0-6 DU/acre). This designation is intended to include two family dwellings, townhouses, and other multi- family developments containing a maximum of four dwelling units per building or structure. Single Family dwellings may also be a compatible use in such areas. It is intended that this designation will provide a variety of housing types in relatively close proximity to single family residential areas and will represent a transitional use between single family areas and high volume roadways or more intense uses. Although a maximum of 6 DU/acre is noted, densities of such developments will be based upon surrounding single family densities. *Medium Density Residential (6-12 DU/acre). This designation is intended to include townhouses, apartments, and condominiums which provide a variety of rental and ownership opportunities at moderate densities in predominantly residential settings. Such developments should have a maximum height of three stories and should be buffered from single family dwelling areas by natural features, linear open space corridors, lower density transitional uses, or extensive buffering. *High Density Residential (12 + DU/acre). This designation is intended to include primarily apartment and condominium developments. Comprehensive Land Use Plan Land Use Element Page 18 Close proximity to mass transportation, shopping and related services, large employment centers and/or access to collector or arterial roadways is necessary. Density and height should be based on proximity to low density uses and transportation capacities. Establish the following non-residential land use designations for purposes of this plan: *Office. This designation includes business and professional offices as well as medical related uses. Retail commercial uses are not included in this designation but may serve as an accessory service use within principal office uses. *Commercial. This designation includes retail goods and service activities on a neighborhood, community, or regional basis. Office uses are appropraite within these areas. Excellent access provisions to collector and arterial roadways are necessary for these uses. *Industrial. This designation includes manufacturing, warehousing, and research and development activities. Principal and accessory office uses may also be appropriate in many industrial areas. *Public. This designation includes parks and open space, public schools, public buildings, and other public lands. *Quasi Public. This designation includes churches, private schools, private golf courses, and cemetaries. Objective: Maintain and protect single family detached dwelling neighborhoods as the dominant land use in Edina. Policies: Require appropriate land use transitions or extensive buffering between low density residential areas and high density residential and non residential areas. If possible, utilize natural features, topography, linear open space strips or corridors, and right of way separations to buffer single family areas from incompatible uses. Require conservation and open space restrictions or easements and/or substantial screening or landscaping to buffer single family areas from incompatible land uses if adequate distance seaparations are not possible. Comprehensive Land Use Plan Land Use Element Page 19 Allow further subdivisions of developed single family lots only if neighborhood character and symmetry are preserved. Restrict home occupations in all residential dwellings such that the residential character of the neighborhood in terms of use and appearance will not be changed in the slightest degree. Prohibit "neck lot" subdivisions whereby access to public streets is gained through narrow strips If land adjacent to other lots. Maintain existing single family lot and building minimums. However, establish a secondary single family zoning classification that allows for reduced minimum lot and building requirements based on neighborhood characteristics. Restrict the converstion of single family dwellings to multi-dwelling uses and non-residential uses. Consider the redevelopment or retro fitting of single family dwellings to multi family uses if located in areas designated as low density attached residential. Such redevelopment or retro-fitting should require rezoning and upgrading of dwellings and properties to multi-family standards. Protect ,;.igle family -elective rehabilitation assistance as detailed in the Housing Element. Objective: In appropriate areas encourage the development of multi-family housing that offers a wide range of housing choice, density, and location while maintaining the overall high quality of residential development in Edina. Policies: Provide density bonuses for medium density residential and high density residential developments to encourage excellence in site planning, building materials, inclusion of modest cost units, and inclusion of assisted units. Restrict medium density residential to a maximu of 12 DU/acre. In order to encourage use of the planned residential district, provisions of the zoning ordinance, eliminate minimum site area requirements. Eliminate minimum dwelling unit floor area requirements from the zoning ordinance and rely on Uniform Building Code minimums to ensure health, safety, and welfare. Require that all petitions for rezoning for multi-family developments containing three or more units per building be considered under the Planned Comprehensive Land Use Plan Land Use Element Page 20 Residential District provisions of the zoning ordinance. Encourage elderly housing development in areas designated as low density attached residential or medium density residential where essential support services are readily available. Encourage the provision of multiple residential housing around community and neighborhood retail areas. Consider the redevelopment of obsolete or underutilized commercial, industrial, or public properties for multiple residential housing. Grant full density credit for areas henceforth dedicated to the city for park and open space use. Objective: Maintain the integrity and quality of office uses in Edina. Policies: Adopt a Planned Office District classification in the zoning ordinance to encourage flexibility and control of design features and innovative approache- Encourage through incentives or bonuses the provision of limited and clearly accessory retail commercial activities within major office developments to capture or intercept possible travel requirements. In some cases, encourage a mixture of office and multiple residential uses to reduce commuting requirements and traffic congestion. Objective: Encourage mixed use developments where appropriate to provide complementary land uses and reduced commuting and inter area travel. Policies: Adopt a Planned Unit District section to the zoning ordinance which accomodates mixed use development proposals. Encourage mixed use developments containing office, multiple residential and accessory commercial elements. Comprehensive Land Use Plan Land Use Element Page 21 Objective: Maintain the integrity and quality of industrial uses in Edina. Policies: Discourage commercialization of industrial areas by restricting warehouse sales and quasi retail commercial uses. Extend the benefits of clearly accessory and limited retail service uses within large office buildings in industrial areas. Maintain present design standards, restrictions, and controls for industrial uses to ensure compatibility with the residential character of Edina. Objective: Improve the condition and vitality of neighborhood and community commercial areas. Policies: Cooperate with commercial district owners seeking to improve circulation and off street parking in smaller commercial areas. Eliminate non-conforming land uses. Encourage redevelopment of under utilized parcels. Pursue balanced land uses within commercial areas based upon functioning level of the district. Prevent strip commercial development. Provide adequate buffers around commercial areas. Encourage multiple institutional housing, and especially elderly housing, on the periphery of commercial areas. Allow conversion of industrial use to office uses only in cases where adequate off-street parking can be accomodated. Restrict office intensities in the PID zones to reduce traffic impacts. Comprehensive Land Use Plan Land Use Element Page 22 IV. Area Considerations A. Northwest Edina. (North of CSAH 62 and West of TH 100) Although the predominant land use in northwest Edina is single family residential, a wide diversity of housing types are available and include two family dwellings, townhouses, rental apartments, and condominiums. Significant tracts of vacant land remain in the north-west portion of this area, most of which is expected to be developed for single fmaily uses during the plan period. Two major parks located in northwest Edina are expected to develop in the plan period. Malibu Park located in the northwestern portion will serve as an active neighborhood facility. Bredesen Park located at the southern extreme of the area will be developed as a passive nature area for community level enjoyment. Non-residential uses are limited to the western extreme of the area along CSAH 18 and the eastern extreme at Vernon Avenue and TH 100 (i.e. Grandivew Area). The Grandivew Area includes a mixture of industrial and commercial uses which developed when Vernon Avenue served as a major thoroughfare. Signs of IL VL/1 ICILC land use, and non-conforming uses are evident in the Grandview Area. Policies: Multiple residential development should be limited to low density attached and medium density residential in all areas except the Grandview Area. Continue to pursue the acquisition of additional parkland at Blake Road and Fox Meadow Road pursuant to the Open Space Acquisition Plan. Require the submission of detailed plans and neighborhood participation for any proposals to further subdivide large developed lots in the Blake Road, Schaefer Road, Interlachen Road area. Such a development should include the extension of Scriver Road as a through street. Require the extension of Interlachen Boulevard westerly to Malibu Drive and ultimately CSAH 18 in conjunction with further subdivisons. Continue to target housing rehabilitation assistance to the area north of Maloney Avenue. Undertake a detailed study of the Grandview Industrial /Commercial area to determine the feasibility of a public redevelopment project. . Comprehensive Land Use Plan Land Use Element Page 23 Encourage the intensification of residential uses in the Grandview Area. Encourage the re-use of obsolete or underutilized, commercial and industrial properties for multiple residential purposes. Discourage the further extension of commercial uses along Vernon Avenue. B. Northeast Edina. (East of TH 100 and north of CSAH 62) Northeast Edina is essentially fully developed. Although housing is generally limited to single family dwellings, some areas along France Avenue South and Valley View Road have been developed with two family dwellings. Higher density multiple residential housing is limited to the 50th and France area, 54th and France, and Valley View/Wooddale. Northeast Edina is served by two neighborhood commercial areas and one community commercial area. The 44th and France commercial area and Valley View/Wooddale commercial areas provide convenience goods and services to their respective neighborhoods. The 50th and France area serves a much large geographic area and functions as a community shopping ar::. .^. major redevelopment project for the 50th and France area was recently completed which greatly improved traffic circulation, parking, and environmental features. Northeast Edina contains most of the older housing stock in the City. As detailed in the Housing Element of this plan, most of this stock is in good to excellent condition despite its age. Nevertheless, the Morningside area in the northeast extreme of this quadrant as well as the area located east of France Avenue should be monitored for signs of blight. Due to the status of northeast Edina, little new development is expected. However, infill on small vacant tracts as well as some redevelopment of residential and commercial properties are expected. Also, a general intensification of residential uses should be expected. Policies: Continue to utilize the 50th and France Redevelopment Plan and Design Framework as a basis for reviewing development proposals in the 50th and France commercial area. Utilize existing and projected parking supply as a basis for reviewing proposals to intensify existing commercial uses in the 50th and France area. Comprehensive Land Use Plan Land Use ELement Page 24 Encourage additional multiple residential housing in the 50th and France area in conformance with the 50th and France Commercial Area Plan. Maintain and encourage neighborhood retail commercial nodes at Valley View/Wooddale and 44th and France. Encourage the intensification of existing commercial uses at 44th and France provided that suitable parking provisions can be accomodated. Discourage extensions of commercial uses along France Avenue, Sunnyside Road, and 44th Street. Encourage redevelopment of obsolete or vacant commercial properties and service station sites on the periphery of 44th and France for multiple residential housing. Discourage further extensions of commercial uses along streets in the Valley View/Wooddale area. Encourage redevelopment of obsolete or vacant commercial properties for multiple residential housing. --4 —"^pment of 54th and France retail service area with with multiple residential nousing. Allow redevelopment or retro fitting of existing dwellings fronting on France Avenue for low density attached residential uses. Require rezoning for all such re-uses. Request Hennepin County and MN DOT to undertake actions to lessen noise impacts on existing properties resulting from TH 100 and CSAH 62. Consider the use of the Minneapolis Waterwork property at 40th and France for low density attached or medium density residential. C. Southwest Edina. (South of CSAH 62 and West of TH 100). Southwest Edina has undergone rapid development in recent years from both a residential and industrial standpoint. Remaining vacant lands are primarily limited to expected multiple residential use. Full development of the industrial area west of TH 100 and south of West 70th Street is expected during the plan period. Several areas in southwest Edina are characterized by unusually large, developed, single family lots. The Indian Hills, Prospect Hills, and Comprehensive Land Ue Plan Land Use Element Page 25 66th and TH 100 areas exhibit such lots. Continued requests to further sub- divide these lots should be expected during the plan period. The only neighborhood scale retail commercial use in southwest Edina is the Cahill/70th Street shopping area. An intensification of this area with uses better serving the shopping needs of its service area may be appropriate. Remaining vacant lands in this area are generally characterized by severe environmental limitations such as slopes or poor soils. Thus, multiple residential or clustered housing presents the most logical means of land utilization while protecting important resources. Policies: Require that all subdivision of large developed lots maintain a desirable spacing of dwellings to ensure the symmetry and character of the area. Prohibit "neck lot" subdivisions in such areas. Utilize topography and vegetation characteristics as a basis for determining suitable lot sizes. Require the submission of detailed plans and neighborhood participation for any is,._,,3sals to furths:.. !_:_ Thts in the southeast quadrant of 66th Street and TH 100. Adequate public road access for such a subdivision is essential. Although the City has little control over tenant selection, generally encourage the provision of establishments at the Cahill/70th Street commercial area which better serves the day to day shopping needs of southwest Edina. Continue to pursue the acquisition of public parkland along McCauley Trail South in conformance with the park and open space acquisition plan. Maintain Cahill Road and 78th Street as the division between industrial and residential uses. Allow clustered housing or medium density residential for sites exhibiting severe topography or soil limitations. Allow low density attached residential for properties fronting on CSAH 18 and CSAH 62. Comprehensive Land Use Plan Land Use Element Page 26 D. Southeast Edina . (East of TH 100 and South of CSAH 62). Southeast Edina is undoubtedly the most heterogenous quadrant of the City from a land use standpoint. This area includes single family housing, an industrial area, significant office developments, and a regional shopping center. Vacant lands are limited to the extreme southeastern portion of this quadrant. Much of this vacant land is utilized for sand and gravel mining operations. These operations are an excellent interim use ,of these properties. However, due to escalating land values, development of these vacant tracts is expected during the plan period. The most prominent use in southeast Edina is the Southdale/Yorktown regional shopping area. This area provides a diversity of retail shopping needs for an extremely large service area. Southdale/Yorktown represents one of the largest traffic generators in the state. Due to the physical condition of this area substantial changes are not antidcipated during the plan period. Due to the concentration of development in southeast Edina, the highest planning priority for this area is the amelioration of existing and anticipated traffic congestion. Past studies have advised that street and highway improvements alone cannot and will not provide a traffic solution for this area. A combination of roadway improvements together with land use controls and transportation alternatives is necessary. (See Daniel, Mann Johnson, and Mendenhall, "494/100 Southdale Corridor Transportation Study". 1971). Policies: Restrict the extension of retail commercial uses in the area. Prohibit any rezoning to commercial districts of lands not now zoned commercial. Encourage an appropriate mixture of land uses to allow for increased intra area travel and multi-purpose trips, thus relieving pressure on external street systems. Encourage or provide incentives to large office, industrial, or multiple residential developments to incorporate clearly accessory convenience retail services within such buildings so as to capture or intercept possible travel. Encourage uses that generate traffic during off peak traffic hours for the area. Encourage employers to implement flexible work hour scheduling, car pooling, and mass transit incentives for employees. Comprehensive Land Use Plan Land Use Element Page 27 Cooperate with the Metropolitan Transit Commission to increase mass transit alternatives. Provide additional pedestrian and bicycle paths to encourage non- motorized commuting shopping trips. Extend the existing Yorktown commuter strip southerly to the south corporate limits. Require that mass transit facilities be incorporated where feasible in all developments. Continue to pursue funds for a mass transit demonstration project utilizing the Yorktown commuter strip. Acquire through subdivision dedication a 12-15 acre public park north of West 76th Street in conformance with the Open Space Acquisition Plan. This park should serve as a focus for surrounding developments. Density credits should be granted for dedication of this parkland. Non-residential uses should not be allowed north of 76th street and east of the proposed public park or commuter strip. Encourage warmed unit developments for non-residential uses. If appropriate, allow high density residential as an element of such planned unit developments. COMPREHENSIVE LAND USE PLAN HOUSING ELEMENT Introduction: The City of Edina has become known for its high quality residential housing stock and attractive neighborhoods. The combination of efforts by early developers, an advantageous location within the metropolitan area, and a commitment to high quality residential development by local officials has led to the high quality residehtial environment experienced by the City's residents today. Probably the most important single development during Edina's early period of growth was the Country Club District in northeastern Edina. The development of Country Club established a standard that was to set the tone for subsequent residential developMent. The adoption of a zoning ordinance in 1929, shortly after the platting of the Country Club District, instituted specific standards for future development in Edina. Although the emphasis has changed from exclusively single family housing to a more balanced mix of housing types, the City's concern for overall quality in residential development remains a primary concern. The City today contains a wide variety of choice of residential housing, from large lot single family housing to high density, high-rise housing. However, due to the general local excalation of prices of residential housing and the high quality of the City's housing stock, the cost of purchasing a home in Edina is high. The built-up nature of the City and relative newness ::ie housing value of Edina's housing stock will remain at high levels during the 1980's. The housing element contains two central themes. The first is the protection of the existing housing stock and residential neighborhoods. At this writing approximately 90 percent of the ultimate housing stock is in place. It is important that policies and controls of the City emphasize the protection of this investment. A second theme of the housing element is the development of policies and programs that will widen the range of housing choices available in the City. In order to maintain the City's population at stable levels and provide adequate housing choices for families in all stages of the life cycle, the City should adopt policies and implement programs to stimulate the development of housing in all price ranges. Comprehensive Land Use Plan Housing Element Page 2 I. Residential Land Use Residential land use is the most important single land use category in Edina, both in terms of land area devoted to housing and taxes generated by housing. Residential land use, excluding streets and other related supporting land uses, occupies nearly 60 percent of all land area and contributes 80 percent of the total property valuation of the City. The largest portion of residential land use in Edina is devoted to the single family home. Sixty-six percent of all housing units within the City are single family units. However, the ratio of single family to multi-family units has been decreasing since 1970. According to the 1970 census count, 83 per- cent of the City's housing units were single family. The reduction since 1970 is due primarily to the character of land remaining to be developed. In 1970, 85 percent of the ulitimate number of single family homes were existing while only 30 percent of the ultimate number of multi-family units were in place. A. Housing Types Single Family: The single family home in a low density setting is the dominant housing form in Edina, and will continue to dominate even though the overall percentage will decrease to 62 percent of all housing units by 1990. Although the City is nearing its capacity for single family homes, the of the 80's w!!! single family home remain the most•desirable dwelling unit type available. Additions to the single family housing stock during the 80's will emphasize in- fill development over large subdivisions except for additions to the Parkwood Knolls area in northwestern Edina. Of the 476 new single family homes expected, approximately 130 will be in the Parkwood Knolls area. Two Family Homes: Two family homes in Edina are primarily located along busy corridors, as transitional uses between single family homes and differing land uses, and in areas of marginal single family desirability. As of June 1979, there were 683 units of two family housing in Edina. This total should increase by about 30 units by 1990; however, redevelopment of some single family housing located along busy corridor streets could increase the number of two family units con- structed during the 1980's. Apartment Buildings: (Including Condominiums) For the porposes of this plan, any building containing three or more units is considered to be an apartment. Currently, apartment-type dwelling units represent 31 percent of the dwelling units in the City. The proportion of the City's dwelling units in apartment buildings will continue to increase Comprehensive Land Use Plan Housing Element Page 3 and by 1990 will represent 34 per cent of the City's dwelling units. Apartment- type units are expected to account for over 70 percent of all new dwelling units constructed between 1980 and 1990. General locations for apartment buidings are shown on the land use plan map. HOUSING UNITS BY TYPE Single Family Two Detached Family 1970 10,975 335 1979 12,375 686 1990 12,851 716 Three + Unit Buildings 1,989 5,757 7,143 Total 13,299 18,818 20,710 Source: U.S. Census, 1970. City of Edina Planning Department. B. Housing Tenure: Tenure is described as the interest an occupant has in the dwelling unit in which he resides. In excess of 90 percent of Edina's single family housing and approximately 80 percent of the total housing stock is owner-occupied. During recent years the overall ratio of owner-occupied versus renter-occupied units has been increasing. This is caused by the increasing popularity of the condominium. The five year period between 1974 and 1979 saw a ten fold increase in the number of condominium units in the City. Only 639 of the units were new construction specifically designed as condominiums, the remaining 1401 units were converted from rental apartments to condominiums. Apartment (Three + Units) Ownership 1974 1979 Rental Apartment 5,042 3,519 Condominiums 208 2, 040 Co-op Apartments 18 - 356 5,250 5,915 Source: Assessing Department, Planning Department, City of Edina, 1979. Comprehensive Land Use Plan Housing Element Page 4 C. Age of Housing Stock The mass use of the automobile for the work trip and the construction of the metropolitan freeway system precipitated the post World War 11 building boom. As a result, Edina and other first ring suburbs experienced tremendous amounts of residential construction, primarily single family units. Approximately 40 percent of all housing units existing today were constructed between 1950 and 1965. Most of this construction was for single family units. Eight percent of the City's housing stock was constructed prior to 1940, most of which was constructed during the 1920's. Age of Edina's housing stock by decade of construction is illustrated on the Age of Housing Stock map in this section. D. Condition of Housing Stock: The majority of Edina's housing stock is in excellent condition. A housing condition survey conducted by the City Planning Department identified no significant concentrations of substandard housing with only scattered pockets in need of general improvements. The survey revealed that only two of the City's twenty neighborhoods contain as much as five percent of the housing stock in poor condition, and only six neighborhoods contain housing with major deficiencies. Deterioration of the City's housing stock does not to be conceri-..d particular areas and does not appear to be purely a T unction of age. i fie Luutuf y Club - White Oaks neighborhood with 99.1 percent of the housing stock in good condition remains a stable and attractive neighborhood although the majority of the housing stock was constructed prior to 1930. The Morningside neighborhood which was showing signs of blight in the early 1970's,has begun to show general improvement as a result of improvements to and replacement of public facilities, and increased private reinvestment in the housing stock. Although the age of the housing stock does not necessarily predict general deterioration of the housing stock, it does predict the need for replacement of major mechanical systems. The condition of the City's housing stock will be monitored on a periodic basis in order to pinpoint potential problem areas. All efforts to protect and improve housing conditions will require City-wide emphasis in all but the areas developed after 1970. E. Housing Cost: Statistics released periodically by the Multiple Listing Service (MLS) show average resale prices for the metropolitan area. For the first quarter of 1979 the mean average sale price in Edina was $105,013. Prices covered a range from a low of $20,000 to a high of $235,000 for the same period. The average sale price in Edina is the highest of all areas covered by the MLS system. CITY OF EDINA hennepin coL.4 minnesota Residential Construction BEFORE 1940 Principal periods 1940 -1949 of construction 1950 -1959 1960 -1969 1970 - 60$ 1200' Comprehensive Land Use Plan Housing Element Page 5 The cost of rental housing in Edina is also extremely high. Spurred by a general metropolitan-wide shortage of good quality rental housing, rents have risen significantly during the past three years. The cost of renting and purchasing housing will remain high during the 1980's. The quality of the existing housing stock, the relative age of the housing stock, the desirability of existing neighborhoods, and Edina's geographic location within the metropolitan region will insure the value of the City's housing stock. Monthly Rents by Unit Size Studio I Bedroom 2 Bedrooms 3+Bed room s $220.00 $275.00 $360.00 $425.00 Rental Unit Inventory by Number of Bedrooms Studio 1 Bedroom 2 Bedrooms 3+Bedrooms Total 189 1,m- ..,m 3519 Source: City of Edina Planning Department, 1979. F. Assisted Rental Housing in Edina: A total of 355 units of HUD-assisted rental housing are available in two developments in Edina. The Yorktown Continental contains 265 units in a twelve-story building for occupancy by the elderly and handicapped. Financed through HUD's Section 236 Program,the units are offered at below market rents through a mortgage interest subsidy to the building's owners. The Yorktown Continental is located at 71st and York Avenue and also houses the City's senior citizen programs. Yorkdale Town Homes, located at 75th and York Avenue, provides 90 units of family housing subsidized by the HUD Section 8 Program. Tenants at Yorkdale pay no more than 25 percent of their income towards rent. The development of assisted housing in suburban areas requires a substantial investment of time and money by the City in addition to the financial resources available through federal and state funding agencies. Program requirements for assisted housing are many times not well suited to suburban situations. In an effort to accomodate assisted housing, especially in higher EDINA NEIGHBORHOODS - HOWL COSTS OU II 11411 I 11114177 Cat u • ,fin.A Ai. • 8 COriL WOO! 'KO sc.a. 0131. li.15 t • IIR•0•1,4 PARK UR, COURSE /i CITY - WIDE MEAN $105,013 CITY OF EEJNA f AVERAGE HOUSING COSTS BASED ON CERTIFICATES OF REAL ESTATE VALUE SEPT. 1977- AUG.I978 Comprehensive Land Use Plan Housing Element Page 6 density areas, the City has amended its zoning ordinance to include a multi- family senior citizen district (SR-3, SR-4 and SR-5). Requirements of the district reflect the specialized needs of senior citizen residents. Development standards established for the senior citizen district (SR) are generally less restrictive than in other multiple residential districts. G. Housing Needs of Lower Income Families: A lower income family is defined as a family whose income does not exceed 80 percent of the median family income for the metropolitan area. Families having incomes of less than 80 percent but more than 50 percent of the median are considered to be moderate income,and families with less than 50 percent of the area median are considered low income. HUD Low Income Guidelines for Metropolitan Twin City Area Number of Persons Low Income Family Very Low Income Family One $11,750 $7,350 Two $13,450 $8,400 Three $15,100 $9,450 Four $16,800 $10,500 Five $17,850 $11,350 Six $18,900 $12,200 Seven $19,950 $13,300 Eight or more $21,000 $13,850 Note: The "Lower Income Family" limits are those that determine a family's eligibility to apply for rent assistance. Source: Department of Housing and Urban Development, September, 1979. Any family whose income is less than 80 percent of the area median and is paying in excess of 25 percent of their income for housing or is living in a unit too small for that family is considered in need of housing assistance. Comprehensive Land Use Plan Housing Element Page 7 The most recent and reliable data available for estimating the number of individuals and families in need of or qualifying for housing assistance is data compiled by the R.L. Polk Company for the period 1976 through 1978. Housing Assistance Needs of Lower Income Families in Edina Total Elderly Family Large Fa mily Total Need: 795 601 159 35 Renter Need: 754 572 150 32 Owner Need: 141 29 9 3 Source: R.L. Polk Company Statistics, 1976-1978. Polk ,,,ompdny 'Udid limates indicate a total need in the community of 795 units of assisted housing. This need estimate includes only individuals and families currently eligible for housing assistance. Need estimates are divided `between homeowners and renters and further by family type and size. Approximately 95 percent of the existing need is for families currently living in rental housing, and 76 percent of that need is for elderly housing. In addition to housing needs described by Polk Data, the City is expected to provide additional housing opportunities based on area-wide need. The Metropolitan Council has estimated that there will be a need for 99,850 additional units of housing affordable to families with low and moderate incomes during the decade. Approximately one-third of the total need is for new households formed during the planning period, and two thirds for households that are in need of housing assistance for one or more of the following reasons: a. The unit is overcrowded (more than one person per room). b. The unit is lacking some or all plumbing facilities. c. The unit's rent, including utilities, exceeds 25 percent of the family's income. Families whose housing situation falls into one or more of the previous categories, and whose income is less than 80 percent of the median are considered inadequately housed and eligible for assistance. Comprehensive Land Use Plan Housing Element Page 8 Communities within the jurisdiction of the Metropolitan Council have been allocated a portion of this area-wide need which is represented by unit goals for the ten-year period. Community goals were based upon a formula using the communities' expected growth in housing units, the existing stock of multi- family units and the number of multi-family units consructed prior to 1940. The application of the formula to the City of Edina results in a goal of 1,800 units of assisted housing. This is the City's maximum or full-share goal for housing production. Recent refinements to the goals have resulted in a range of acceptable performance levels for communities. Acceptable performance for Edina, according to the Metropolitan Council, is a minimum of 720 units and a maximum or full-share goal of 1,800 units of assisted rental housing. The preceeding goals are only for rental housing; separate goals have been established for ownership. Based on the scarcity of lower-priced housing units in the City and the large employment base in and near the City, a goal of 476 modest cost market rate opportunities for ownership has been allocated to the City by the Metropolitan Council. II. Policy Plan: A. Market Rate Housing Goal: Preservc protect the residential neighborhoods. The general condition and quality of .ha City's residential neighborhoods is excellent. The residential stock of Edina, comprising 80 percent of the total valuation of the City, is the City's primary fiscal resource. Edina's present housing stock, two-thirds of which is single family, offers a wide variety of choice to residents, ranging from the large lot, quiet setting to high density urban environment. Although there is a limited supply of housing at the low end of the housing price market, there does exist a wide variety of housing type, density and cost available to prospective residents. Objective: Offer a wide range of market rate residential housing choice. Policies: Lot sizes for new single family development should be based on existing neighborhood standards. Low, medium and high density housing should be provided according to the General Land Use Plan. Home ownership should continue as the primary form of occupancy in the City. Comprehensive Land Use Plan Housing Element Page 9 Redevelopment of sites near or bordering existing neighborhood and community commercial centers should be evaluated as residential sites before other uses are considered. Objective: Preserve the stability of existing residential neighborhoods. Policies: Residential areas should be protected from conflicting land uses. Where conflicting uses exist adjacent to residential areas, redevelopment should provide for adequate transition of land uses. Provide high quality municipal services to all neighborhoods. In-fill housing built on vacant or subdivided sites should be compatible with the surrounding neighborhood. Enforce the Housing Maintenance Code, as required to promote neighborhood stability. Restrict business activities in residential districts. B. Modest Cost Housing Goal: Increase the supply of housing affordable to families with moderate incomes. During periods of high inflation in housing prices and high interest rates, the modest income family (the family whose income exceeds the limits for govern- ment aid but cannot qualify for conventional financing) is particularly hard hit in the housing market. This family is usually the first time buyer with little or no equity available for the necessary down payment required. Families with modest incomes are finding that their choice in the housing market is becoming more and more restricted. Modest cost housing is important to the community since it provides owner- ship opportunities for first time buyers who are entering the family formation stage of the life cycle. An adequate supply of housing affordable to young families can help balance the age distribution in the public school system. Modest cost housing also frees up the supply of large single family homes by allowing empty nesters (couples remaining in large homes after their children have grown and moved out) to trade down to a smaller house and still remain in the area. Similarly, modest cost housing allows elderly individuals to remain in or close to the neighborhood but in a unit more appropriate to their needs. Most factors responsible for the rapidly escalating cost of housing are not within the City's power to influence. The City can, however, review its Comprehensive Land Use Plan Housing Element Page 10 control mechanism and remove requirements that may unnecessarily increase the cost of new housing. The Metropolitan Council has established a goal of 476 units of new modest cost housing for Edina. In the present housing market, modest cost would be housing priced in the $50,000 to $60,000 bracket. Although Edina can encourage the construction of lower cost housing on appropriate sites, it cannot guarantee the construction of such housing. Construction of modest cost housing in Edina will depend upon the market demand as perceived by the private land developer, and the cost and availability of financing. It is unlikely that the goal of the Metropolitan Council will be met during the planning period. Land costs and the availability of suitable parcels for development will seriously limit modest cost housing development, especially for single family construction. The most practical approach to the development of modest cost housing in Edina is in multiple family districts. If developers reduce the size of individual units they can sell more units at lower prices while not increasing • overall building sizes. Opportunities for modest cost multiple family housing may be available in southeastern Edina and on a scattered site basis throughout the City. Objective: To provide incentives to developers to construct modest _ cost housing for ownership. Policies: Encourage the private sector to take the lead in creating flexible financing programs to make home ownership available to more families. Encourage developers to consider a variety of dwelling unit prices in development proposals. Review subdivision and zoning ordinances for requirements or conditions that may unnecessarily increase the cost of housing. Cooperate with developers and local lending institutions interested in utilizing state and federal programs designed to extend the benefits of home ownership to more families. Allow redevelopment of parcels in small lot areas of the City according to existing neighborhood standards. Study the feasibility of the use of the City HRA's bonding authority for mortgage financing. The City should consider density bonuses for developers providing modest cost housing. ° Comprehensive Land Use Plan Housing Element Page 11 C. Maintenance of Existing Housing Stock Goal: Maintain and improve the quality of the City's housing stock. By almost any standard the existing housing stock of Edina is in excellent condition. The housing condition survey conducted by the Edina Planning Department found that all but three of the City's neighborhoods had over 90 percent of their housing stock in excellent condition. Even in those areas that have less than 90 percent of the housing stock in excellent condition, very few units were found to be substandard. Most items noted were of a deferred maintenance nature and were not generally immediate threats to the overall condition. Because Edina's housing stock is relatively new (only 8 percent of the City's housing was constructed prior to 1939), it will be some time before age is a threat to housing conditions. While most structures remain in sound condition, an increasing number of owners will be facing replacement of major systems during the planning period. Electrical, mechanical, plumbing and the exterior envelope of many houses will need replacing. The useful life of primary systems of the housing constructed immediately following World War II is at or nearing the end of its useful life. ...-.3rgy required to heat and cool homes and possible shortages of fuels will require substantial investments in insulation for all but the newest homes. Edina's stock of multiple family housing is in good to excellent condition. Most of this housing is less than fifteen years old and should require only maintenance before 1990. The recent trend of conversion of buildings to condominium ownership will also contribute to the stability of the multiple family housing in Edina. Condominium homeowners associations may show greater concern for building conditions than do absentee owners. Objective: To eliminate substandard dwelling units and maintain the housing stock in standard condition. Policies: Promote and encourage the use of private resources as the primary source of funds for maintaining and improving the housing stock. Utilize all appropriate state and federal programs to maintain and improve the City!s housing stock. Concentrate available grant and loan money in areas with less than 90 percent of the housing in good condition. Comprehensive Land Use Plan Housing Element Page 12 Periodically survey housing conditions City-wide to determine housing condition trends. Continuously monitor areas that show significant declines in overall housing conditions. Enforce housing maintenance code in all neighborhoods. Encourage homeowners and landlords to invest in energy conserving improvements. D. Assisted Rental Housing: Cities within the Metropolitan Council's jurisdiction are required by the Mandatory Land Planning Act of 1976 to plan for and create opportunities for assisted (subsidized) rental housing affordable to low and moderate income familie and the elderly, through a formula based on both existing local need and total metropolitan need for assisted housing during the period 1980-1990. (The procedure used is included in the appendix to this chapter.) According to this formula, Edina's share of the total metropolitan need is 1,800 units of housing affordable to families with low and moderate incomes. The goal of 1,800 units of assisted housing is based on total area-wide need as calculated by the Metropolitan Council, and does not reflect available programs or resources expected to meet that. need. Refinements to the goal structure, intended to reflect anticipated resources, have resulted in a goal of 720 units for Edina. The City of Edina made a commitment to providing assisted housing by adopting and implementing the Southeast Edina Redevelopment Plan- in 1977. Ninety units of family housing are occupied and a potential for approximately 200 additional units remains in the plan area. This area continues to be a high priority area for assisted housing due to the high level of support services available, especially public transportation. The policies set forth in this plan are the product of a detailed analysis of the potential for development of assisted housing in Edina. coals set forth may or may not agree with the established Metropolitan Council goals, but are in all cases a reflection of the community's maximum capacity to provide assisted housing. Goal: It shall be the goal of the City of Edina to achieve new assisted housing opportunities in privately owned existing rental housing as follows: FAMILY - 80 Units ELDERLY-100 Units Comprehensive Land Use Plan Housing Element Page 13 Policies: Continue participation in the Metropolitan Council HRA's Section 8 existing rent subsidy program. Encourage both the Metropolitan Council and the Department of Housing and Urban Development (HUD) to base allowable rents on local market conditions. The built-up nature of the City and its substantial stock of rental housing (3519 units) makes assistance in the private housing stock the most logical and cost-effective approach to providing assisted housing in the city. This approach allows the family the greatest amount of locational choice and may also avoid any possible stigma that may be associated with assisted rental developments. Goal: Provide 200-350 units of assisted elderly housing with new construction on appropriate sites between 1980 and 1990. Objective: Locate elderly housing in areas providing adequate support services. Policies: When redevelopment occurs along major corridors providing adequate levels of public tranrw,P--rtion, consider ..,. of the site for assisted elderly housing. Support the development of assisted elderly housing by non-profit sponsors. Encourage development or redevelopment for elderly housing in the area detailed on 'the attached map showing general locations for assisted elderly housing. Evaluate possible sites within identified corridors for elderly housing to provide guidance to potential developers. Encourage developers to include units designed for the physically disabled and the physically handicapped in all elderly projects. Goal: Provide between 165 and 385 units of family housing in new assisted construction between 1980 and 1990. Objective: Locate assisted family housing development in areas shown on the gen- eral locations for family housing map as follows: CITY OF EDINA h emeepi comity mi wets mod oDo' sod moo' GiEii1511011 GE:R AL LOCATION FOR 11.SSISTO Al311:L' HOUSING FOR THE ELDERLY GENERAL LOCATION KM IISSISTED NOISING CITY OF EDINA helm* wady minneseta Comprehensive Land Use Plan Housing Element Page 14 Area I: 10-75 Units Area 2: 40-90 Units Area 3: 40-70 Units Area 4: 75-150 Units Policies: Avoid undue concentrations of family housing in any area. Projects in which all units are subsidized should be developed at a low density. (A maximum of 12 units per acre.) Encourage the development of projects which contain a portion of assisted units but are primarily market rate. Encourage HUD to develop programs that provide housing for moderate income working families. Project quality and location should not be inferior to that for market rate developments. Assisted housing developments should i.Je privately owned Assisted family housing developments should have adequate levels of public transit service available throughout the day within reasonable walking distance. Proposals for assisted housing should provide off-street parking, both covered and surface, sufficient to meet demand as established by other developments in the City. Materials used and construction quality of assisted housing develop- ments should not be inferior to similar market rate developments in the City. APPENDIX A Exterior Building Condition Survey and Rating Methodology A simple "windshield" survey technique was utilized by the City of Edina Planning Staff to obtain general building condition information about the single family residences in Edina. The survey was not intended to dictate the type of activity necessary to improve or correct particular deficiencies. Rather,the survey's purpose was to serve as a data service for providing information regarding the exterior structural characteristics of housing in Edina. The survey was largely conducted from the sidewalk or street. Only single family detached housing was surveyed as other housing types would require a more complete and sophisticated inspection technique to detect deficiencies. For the purpose of rating the condition of buildings, categories of minor and major deficiencies were assumed and applied to different aspects or areas of the structure. These major and minor structural conditions were then rated as either good, fair or poor. The criteria used for the three grading levels for each deficiency considered are listed below. CONDITION - MAJOR DEFICIENCIES: Roof Good - No deficiencies. Fair- •Shingles missing, shingles weathered and pitted, but intact. Poor - Many shingles missing, sagging in places, rotting, holes and materials missing. Walls Good - No deficiencies. Fair - Minor cracks, in plumb, weathered but intact, slight bowing. Poor - Material missing, out of plumb, substantial bowing or leaning, siding buckling, shingles rotting and broken. Appendix A Page 2 Foundation Good - No deficiencies . Fair - Minor cracks, no materials missing, slight settling. Poor - Material missing, substantial settling and leaning, substantial cracks. MINOR DEFICIENCIES: House Paint Good - No deficiencies, well kept. Fair' - Minimal chipping, cracking around frames and eaves. Poor - Substantial cracking or chipping of all painted surfaces. Steps and Porch Good - No deficiencies. Fair - Weathered L-4. -+ructurally ^I^ -*her materials missing, minor cracks, no leaning. Poor - Substantially cracked, bricks missing or crumbling, material missing, leaning or sagging. Gutters and Downspouts Good - No deficiencies. Fair - Some rusting, slight bowing or sagging, no disconnected pieces. Poor - Substantial rusting, visibly clogged with organic materials, substantial bowing or sagging, disconnected pieces. Chimney Good - No deficiencies. Fair - Slight cracking, grout missing, bricks chipped. Poor - Cracking, bricks missing, bricks broken. Appendix A Page 3 After rating the various parts of the house, a general condition classification was assigned to the structure. Each structure was considered to be in good, fair, or poor condition. A house classified in good condition had no more than one major or minor deficiency rated as low as fair. A house in fair condition had any number of deficiencies rated as low as fair and no more than one minor deficiency rated as low as poor. A house in poor condition contained a major deficiency rated as low as poor and/or at least two minor deficiencies with a rating of poor. APPENDIX B How Community Fair Share Capacity Percents and Ranges Were Determined The proposed revised Long Term Allocation Plan determines the fair share range of the area's need for low and moderate income housing for each community based on its capacity to provide housing opportunities. This range of need is established through the following process: Step I: Step II: Step III: Step IV: Step V: Assemble the data to approximate a community's capacity to offer low and moderate income housing opportunities. Three factors are considered and are weighted based on the flow of subsidized program resources (50% new construction, 40% leased housing programs using existing units, 10% substantial rehabilitation programs). I) Forecasted household growth (reflects capacity to offer opportunities for new construction programs). 2) Multi-family apartment units (reflects capacity for offering opportunities using existing leased housing subsidy programs ). 3) Pre-1940 multi-family units (reflects capacity for offering using substantial rehabilitation subsidy programs; . For each of these three data categories calculate every community's share of the metropolitan total. Derive each community's composite share by weighting the three shares, adding the weighted shares and dividing by ten. Housing growth is given a 50 percent weight, multi-family units are given a 10 percent weight to reflect subsidy fund availability. This average percentage share represents a community's fair share potential capacity percent. Multiply this fair share capacity percent times the regional need for low and moderate income housing over the next ten years. Establish the low end of the fair share range for each community by taking forty percent of the maximum previously calculated capacity share. This forty percent is more consistent with the probable, available subsidy funding coming to this area. Actual funding for communities will, of course, be governed by the short- term Subsidized Housing Allocation Plan which is subject to periodic revision. Appendix B. Page 2 The process is illustrated for an example community as follows: Step I: Forecasted Growth in Number of Multi-Family Number of Households Apartment Units Community X 660 2737 Metro Area 1117083 240286 Number of Pre-I940 Multi-Family Apartment Units Community X iti Metro Area 86072 Step II: Forecasted Growth in Number of Households Metro Share 660 0. 45% Metro Area 1 117083 Number of Multi-Family Apartment Units Metro Share Community X 2737 1.14% Metro Area 2110286 • Number of Pre-1940 Multi-Family Apartment Units Metro Share Community X 14 0.02% Metro Area 86072 Step III: Share of household growth Share of multi-family units Share of pre-1940 multi-family units 6. 83% = . 68% 10 .45%x 5 = 2.25 1.14% x 5 = 4.56 .02% x I = .02 6.83 Appendix B Page 3 Step IV: 99850 x .68 = 700 Step V: 700 x 40% 280 Community X - Fair Share Percent .68 Range of low and moderate income housing opportunities to plan for - 280 - 700 Source: Metropolitan Council. Figures not representative of Edina COMPREHENSIVE LAND USE PLAN ENVIRONMENTAL PROTECTION ELEMENT I. Waterbodies and Water Courses A. Nine Mile Creek Nine Mile Creek drains approximately 50 square miles of land located within the Cities of Bloomington, Hopkins, Minnetonka, Richfield, Eden Prairie, and Edina. The north fork of Nine Mile Creek is approximately 15 miles long from its source in Hopkins to its outflow into the Minnesota River. The south fork of Nine Mile Creek is approximately 82 miles long and joins the north fork southerly of the south corporate limits of Edina. The north fork of Nine Mile Creek extends for 4-1 miles through Edina from northwest to southeast. Approximately .8 miles of the south fork of Nine Mile Creek is located within Braemar Park in southwest Edina. Approximately 70% of the land within Edina ultimately drains into Nine Mile Creek. The north fork of Nine Mile Creek grades from an elevation of 870 feet above sea level in northwest Edina to 820 feet above sea level in south central Edina. Due to this relatively low gradient, Nine Mile Creek is characterized by a broad floodplain. Much of this floodplain is composed of types 3 and 4 wetlands. Mud Lake, which is located in west central Edina_ nrovides a significant back water storage area for Nine Mile The Nine Mile Creek Watershed District is responsible for the overall water management plan for Nine Mile Creek and its drainage area. Edina has and will continue to work closely with the Watershed District to implement this water management plan. Edina has petitioned the Watershed District to undertake the Mud Lake/Bredesen Park Improvement Project. This project is an important element of the water management plan and has been contemplated since the early 1960's. In addition, Edina will continue to work with the District to regulate the use of floodplain areas and to control erosion and sedimentation within the drainage area. B. Minnehaha Creek Minnehaha Creek drains about 184 square miles of land located within 27 municipalities including Edina. Minnehaha Creek extends for 31 miles through northeast Edina. Approximately 30% of the land area within Edina ultimately drains to Minnehaha Creek. Due to topography, Minnehaha Creek is characterized by a narrower floodplain than Nine Mile Creek. However, Meadowbrook Lake located in the Edina- St. Louis Park border and Pamela Park in east central Edina provide significant flood plain areas. Comprehensive Land Use Plan Environmental Protection Element Page 2 The Minnehaha Creek Watershed District is responsible for the overall water management plan for Minnehaha Creek and its drainage area. Edina and several other jurisdictions have petitioned to District to undertake a basic land and water improvement project. This project will improve Minnehaha Creek in terms of lessening peak flood discharges, increasing low level flows, and enhancing recreational uses of the creek. Edina will continue to cooperate with the District to regulate the use of floodplain areas and enhance the quality and recreational potential of Minnehaha Creek. C.Lakes, Ponds, and Wetlands Edina contains numerous lakes, ponds, and wetlands which are scattered throughout the community. All of these waterbodies are relatively small. Lake Cornelia, which is located in east central Edina, measures approximately 50 acres in area and is the largest waterbody in the City. Minor Lake, Arrowhead Lake, Indianhead Lake and Lake Edina measure 20 to 30 acres in area. Remaining water bodies in the City measure less than 20 acres in area. All lakes and ponds in Edina are relatively shallow. Sampling of the major lakes in the City has revealed maximum depths of 6 to 8 feet. Most lakes and ponds are underlain by varying depths of peat and muck sr,i1c Due to the depth and composition of the major waterbodies in the City, significant fish populations do not exist. Test nettings conducted for Lake Cornelia by the Minnesota Department of Natural Resources revealed the presence of carp, black bullheads, brown bullheads, green sunfish, pumpkinseeds, and hybrid sun- fish. The preponderance of green sunfish and black bullheads in this test netting indicates a situation where more desirable gamefish cannot survive due to low dissolved oxygen concentrations and other factors. Thus, an increase in the size and variety of the fish population for Lake Cornelia and other City takes probably depends upon artificial aeration and frequent re-stocking. Wetlands located within Edina have been surveyed by the Minnesota Department of Natural Resources. These wetlands have been classified according to the United States Department of Interior, Fish and Wildlife Service, Circular 39. This circular defines the following eight types of wetlands found in Edina: Type I. Seasonally flooded basins or flats. Soil may be waterlogged seasonably but generally well drained during summer months. Type 2 Inland fresh meadows. Soil is generally waterlogged during most of the year. Vegetation includes grasses and sedges. Type 3. Inland shallow marshes. Soil is often covered with six inches of water. Vegetation is primarily aquatic and includes cattails, bulrushes and other emergent vegetation. *.t CITY OF EDINA hennepin county minnesota 600 /200. @GEW5i1 ) 0 VI 76 11. ST WETLANDS TYPE 3 LJ TYPE 4 TYPE 5 Comprehensive Land Use Plan Environmental Protection Element Page 3 Type 4. Inland deep marshes. Soil is covered with six inches to three feet of water. Vegetation includes cattails, reeds, and other emergents as well as submerged vegetation. Type 5. Inland open water. Shallow ponds with less than ten feet of water and fringed by emergent vegetation. Type 6. Shrub swamps. Soil is usually waterlogged. Vegetation includes alders, willows, and dogwoods. Type 7. Wooded swamps. Soil is waterlogged. Vegetation includes tamaracks and white cedar. Type 8. Bogs. Soil is waterlogged. Vegetation includes mosses and sedges. Of primary importance in Edina are types 3, 4 and 5 wetlands due to their hydrologic and wildlife benefits. These wetlands are also designated as public waters by the Minnesota Department of Natural Resources. D. Water Quality As with most ur 'Jan settings, surrace water quality in Edina is generally deteriorating. This deterioration has resulted primarily from increased run-off caused by ever expanding impervious surfaces within the City. Such runoff is extremely rich in nutrients, most notably phosphorous, which contributes to the accelerated growth of algae and other acquatic vegetation. De-icing salts, sediments, and debris are also carried to watercourses and waterbodies by runoff. Investigations conducted in recent years reveal that nearly all Edina water- bodies are highly eutrophic. These lakes are characterized by very low transparency, high phosphorus and nitrogen concentrations, organic sediments, high concentration and frequent blooms of algae, and lush growths of submerged aquatic vegetation. Due to the proximity of waterbodies to residential areas, the City applies aquatic herbicides on many lakes and ponds to control excessive algae blooms and submerged vegetation. II. Upland Vegetation Due to the fully developed status of Edina, the presence of unaltered upland plant communities is very limited. Past development activities have severely altered or eliminated these natural resources. Fortunately, however, many remnants of native plant communities. have been retained in Edina's park and open space system. Comprehensive Land Use Plan Environmental Protection Element Page 4 Excellent remnants of tall grass prairie, floodplain forest, oak savanna, and various aquatic communities have been retained in this system. Few unaltered remnants are found on private property in Edina. The most significant upland vegetation type found in Edina is the urban forest. The urban forest includes naturally occurring and cultivated trees and shrubs growing on boulevards, private residential properties, and developed parklands. Western Edina was characterized by significant stands of upland woods, primarily oak woodlands and savanna. Due to the "large lot" development of this area, many oaks and other deciduous trees have been preserved and augmented with cultivated species. Eastern Edina was developed with relatively small lots and more intense developments resulting in the removal of much of the native tree cover. The urban forest in this area is composed primarily of cultivated species, most notably the American ,elm. Dutch elm disease and oak wilt have resulted in significant losses to the urban forest in Edina. In 1978, 1850 cases of Dutch elm diseased were confirmed in Edina which was an increase of 529 cases from 1977. In 1978, 95 cases of oak wilt were confirmed. Losses to Dutch elm disease in eastern Edina can be attributed to the part reliance on the American elm for boulevard plantings. Naturally occuring oaks, primarily located in western Edina, have been susceptible to oak wilt. Detection, removal, and disposal of diseased trees continues to be the most effective overall appe:.•!-, *vs^ '^sses caused by these diseases. Floodplain Management 'Development pressures within Edina and surrounding communities in past years increases the need for proper floodplain management. Buildings, parking lots, and other impervious surfaces prevent the natural infiltration of precipitation into the ground and greatly increase the volume of surface runoff. The retention and detention of such runoff within upland ponds, marshes, and floodplain areas is essential to reduce flood elevations and resulting property damage. Floodplains have been delineated by the City and appropriate watershed district for Nine Mile Creek and Minnehaha Creek. These floodplains are based upon a 100 year frequency occurrence. In addition, the Federal Insurance Administration has recently re-delineated these floodplain areas for flood insurance purposes. CITY OF EDINA hensepin county miNuesota 600' 1200' FLOOD PIAUI DENOTES FLOOD PLAIN AREA Comprehensive Land Use Plan Environment Protection Element Page 5 IV. Wildlife, Habitat, and Rare and Endangered Species The diversity and health of wildlife populations are directly related to the quality and availability of suitable habitats. Although several species, such as the mallard and Canadian goose, are very adaptable to urban settings, many species which once were common in Edina have disappeared or have severely decreased in numbers as a result of habitat loss. As with plant communities, most significant wildlife habitat in Edina is limited to the park and open space system. Mud Lake/Bredesen Park located in west central Edina provides a unique mixture of aquatic habitats, prairies, shrub swamps, and upland woodlands which in turn provides for an excellent diversity of wildlife species. Edina, in cooperation with the Nine Mile Creek Watershed District, proposes to manage and improve this area for its wildlife resources. Braemar Park, Lake Cornelia Park, and public lands adjacent to Nine Mile Creek and Minnehaha Creek also offer a diversity of habitats for wildlife. No rare or endangered species are known to exist in Edina. However, an exhaustive field survey has not been conducted to confirm this observation. It is possible that some bird species classified as rare or endangered may be found in Edina during the course of migration. Also, some u, ion plant spec;-. possibly be found among the remnant plant communities in the City. As with all wildlife and plant species, the preservation of rare and endangered species depends upon the preservation and appropriate management of a variety of habitats in Edina. V. Air Quality Ambient air quality standards have been established for several classes of air pollutants including carbon monoxide, sulfur compounds, hydrocarbons, oxides of nitrogen, and particulate matter. Due to the land use characteristics of Edina, pollutants produced by automobiles and trucks, primarily carbon monoxide, are of most concern. Southdale Shopping Center and its environs in southeast Edina represent the largest traffic generator in the City and therefore is of primary concern from an air quality standpoint. In November and December, 1978, the Minnesota Pollution Control Agency monitored carbon monoxide levels in this area. This study failed to reveal any violations of the National Ambiant Air Quality Standards for carbon monoxide. These standards establish 35 ppm and 9 ppm for maximum average carbon monoxide levels during one hour and eight hour periods respectively. Due to the intensity of development and traffic volumes in southeast Edina, carbon monoxide levels should be monitored at appropriate intervals. Comprehensive Land Use Plan Environmental Protection Element Page 6 VI. Heritage Preservation Minnehaha Creek played an important part in the original development of Edina. In the 1850's, Minnehaha Creek enjoyed very large and stable flows. This encouraged the construction of several grist mills along the creek which ground wheat and other grains. In 1856, a grist mill was constructed near a 15 foot waterfall where Browndale Avenue now crosses Minnehaha Creek north of West 50th Street. During the Civil War, the mill ran almost continually to supply flour requisitioned for Fort Snelling. In 1869, Andrew Craik purchased the mill and named it Edina Mill for his birthplace, Edinburgh, Scotland. Edina was part of Richfield in the early 1880's and was an agricultural community having several small centers of community activity including an Irish settlement in southwest Edina. In the late 1880's, residents of Edina decided to secede from Richfield. However, incorporation was delayed for several months due to disagreement on a name for the new village. Scotch settlers suggested the name "Edina" while Irish settlers suggested "Killarney Lakes." The name "Edina" won by a narrow margin and the village was incorporated in 1888. Edina's cultural, historical and architectural resources are among the most important and signifie-r-i. environmental -+ These resources provide a living history of the development and growth of Edina and provide a foundation for the community's future. The identification and preservation of these resources deserve special efforts. The National Register of Historic Places was established in 1966 in order to identify the districts, sites, buildings, structures, and objects possessing historic and/or architectural significance. To qualify, properties must be associated with some historic event or personage, and buildings must represent significant architectural styles or works of noteworthy architects. Three buildings in Edina are presently included on the National Register: Cahill School, Eden Avenue and Highway 100 Grange Hall, Eden Avenue and Highway 100 Jonathan Grimes House, 4200 W. 44th Street Two sites are in the process of nomination to the National Register: Edina Mill Site, Browndale and West 50th Street Baird House, 4440 West 50th Street In 1975, Edina established a Heritage Preservation Board. This Board is charged with assisting and advising the City Council on matters concerning the identification and preservation of buildings, lands, or areas which are of particular historical or architectural significance or which possess particular cultural or educational CITY OF EDINA hennepin county minnesota NATIONia. 1.'0-151E4 HIST JC A DENOTES SITES INCLUDED OR NOMINATED TO HISTORIC REGISTER 600' 1200 Comprehensive Land Use Plan Environmental Protection Element Page 7 value. Upon making certain findings, the Board may recommend to the City Council that buildings or lands be zoned to Heritage Preservation District. Once zoned to Heritage Preservation District, special permits are required to remodel or alter the building or property. To date, the City Council has designated five sites as Heritage Preservation Districts. These five sites are the same sites which are now carried on or are in process of nomination to the National Register of Historic Places. In 1979, a study entitled Historic Building Survey of Edina, Minnesota was completed for the Edina Heritage Preservation Board. This study described in detail buildings and lands of historical or architectural significance. This study also recommends the designation of certain buildings: and areas as Heritage Preservation Districts. The Heritage Preservation Board will utilize this study for making recommendations to the City Council for Heritage Preservation District Rezonings. VII. Solid Waste With the exrentinn of the Morningside area of Edina, solid waste disposal is conduct,: L)y ; acts between property owners and haulers. In the Morningside area, the City contracts with a private hauler and assesses costs to property owners. Private contracting for solid waste disposal has and continues to operate quite efficiently. Past proposals which advocated a "districting plan" for Edina or greater City involvement in soli6 waste collection have generally been resisted. Thus, it is proposed that private contracting for disposal for solid waste should continue. Edina has operated a municipal recycling center since 1974. This center is managed and directed by a Recycling Commission appointed by the City Council. The Recycling Center accepts newspaper, magazines, cardboard, other paper, aluminum, bi-metal cans, glass bottles and jars, and used crankcase oil for recycling. These materials are sorted and loaded by City employees at the center and shipped to processing agents. The Recycling Center may be used by everyone not just Edina residents. Although the Edina Recycling Center is one of the leading recycling centers (from a volume standpoint) in the metropolitan area, it must be recognized that only a small percentage of Edina's solid waste stream is captured by the center. Nevertheless, the Recycling Center is a valuable asset from several standpoints. First, it does reduce the total solid waste volume reaching the landfill and reduces energy and material consumption. Second, it provides an opportunity to residents desiring to recycle. Third, it gives a sense of accomplishment and Comprehensive Land Use Plan Environmental Protection Element Page 8 citizenship to participants. Four, it provides an excellent educational device that accentuates solid waste disposal and energy problems. VIII. Soils and Slopes In the case of a fully developed community such as Edina, the use of soils data as a basis for land use decisions is questionable. The current Hennepin County Soil Survey, which reflects 1968 conditions, includes only about II% of the land area of Edina. Approximately 75% of this mapped area has been developed since 1968. Thus, it would not be appropriate at this time to conduct a detailed analysis of the City from a soils standpoint. It should be noted, however, that many undeveloped properties in Edina exhibit soil or slope limitations. In many cases, these limitations have forestalled the development of these properties. The most prevalent limitations in Edina are organic soils and steep slopes. Peaty muck soils are primarily located in the floodplain areas of Nine Mile Creek and Minnehaha Creek. A few isolated basins .a nd r'preSSiOnS ieSnPrialiV in southwest Edina,are also characterized by peaty soils. In many Lase, the thickness of these organic deposits can be 20 feet or more. Organic soils have severe limitations for development due to wetness, flooding, and foundation problems. In most cases installation of pilings or complete removal of the organic soils and replacement with granular material is required prior to construction. Settling of sidewalks, utilities, and yards is common with these soils. Due to the scarcity and cost of land in Edina, correction of these limitations through peat excavation or piling is frequently economically feasible. The southwest quadrant of Edina is characterized by rolling topography and steep slopes. Slopes exceeding 18% are common in this area. Steep slopes present severe limitations to development due to high erosion potential, grades of access roads, potential for soil slippage, and the necessity of major land and vegetation alterations. IX. Solar Access It is recognized that increased use of solar energy is absolutely necessary to reduce dependence on tradititional fossil fuels. According to the Minnesota Energy Agency, energy demand will exceed supply by 1988 unless a substantial Comprehensive Land Use Plan Environmental Protection Element Page 9 conversion to renewable energy sources occurs. Solar energy presents an excellent opportunity at the local level to reduce non-renewable fuel usage. Although the use of solar energy for large scale power production is still in the experimental stage, its use for individual space heating and cooling and water heating is feasible. Use of solar energy for these purposes, however, depends upon access to direct sunlight. Obstructions caused by vegetation, topography, and other structures can diminish or preclude solar energy usage. Solar energy systems include passive systems and active systems. A passive system relies simply on the structure's design (e.g. south facing windows and heat absorbing materials to collect solar energy). An active system utilizes a collection and mechanical system to convert solar energy into a usable form and transfer it to the point of use. Active and passive systems both rely upon access to direct sunlight. In general, solar access must be provided during low winter sun conditions and high summer sun conditions. In the metropolitan area, solar attitude at noon varies from 21.5 degrees in winter to 68.5 degrees in summer as measured from the southern horizon. Edina's fully developed status and mature urban forest limit a comprehensive approach for solar access protection. Protection of access on a case-by-case basis and the encouragemer+ ----i incentives fc- :f energy systems can be pursued. GOALS, OBJECTIVES./ AND POLICIES GOAL: The goal of the environmental protection element is to protect and manage significant remaining natural resources, improve the health and diversity of the urban forest, preserve Edina's cultural, historic, and architectural heritage, and mitigate despoilation of land forms, waterbodies, and water courses caused by pollution and unsound land use practices. Objective: Protect the integrity, quality, hydrologic efficiency, and enhance the recreational use and enjoyment of Nine Mile Creek and Minnehaha Creek. Policies: Regulate all uses within the 100 year floodplain by restricting encroachments to levels which will not unduly diminish the flood carrying capacity of Nine Mile Creek and Minnehaha Creek. Require that all buidings constructed in floodplain areas have a ground floor elevation of at least one foot above the maximum anticipated 100 year flood- plain elevation. Update and amend Edina's floodplain management ordinance to reflect the findings and requirements of the Flood Insurance Study conducted by the Federal Insurance Administration. Continue to utilize upland storage basins to lessen peak flood discharges of the creeks. Restrict creek crossings with utilities and roadways where suitable alternatives are available. Require the dedication of or the grant of scenic and open space easements over all lands adjacent to and 100 feet upland of the creeks in conjunction with the subdivision or development of properties. Require the dedication of appropriate floodplain areas in conjunction with the subdivision or development of properties. In cooperation with the appropriate watershed district, reduce the potential for erosion and creek sedimentation by requiring installation of temporary and permanent erosion control measures for major soil alteration activities. Continue to participate with the Minnehaha Creek Watershed District to enhance the use of this creek for canoeing through the construction of canoe landings and portage trails and the removal of obstructions. In cooperation with the Nine Mile Creek Watershed District, implement the Mud Lake/Bredesen Park Improvement Project. Develop pathways and trails where possible through the Nine Mile Creek corridor to intersect with and provide the construction of pathway trails in Hopkins and Bloomington. Goals, Objectives, and Policies Page 2 Objective: Protect and manage lakes, ponds and wetlands for storm water retention areas, wildlife areas, and amenity areas, and lessen impacts from nutrient and sediment input. Policies: Utilize waterbodies and man-made ponding areas for the retention and detention of storm water to reduce flooding potentials and stabilize lake and pond levels. Restrict encroachments below the ordinary high water marks of Type 3, 4, and 5 wetlands. Require the dedication of or the grant of a scenic and open space easement over all land adjacent to and 100 feet upland of naturally occurring lakes and ponds in conjunction with the subdivision or development of property. Require the dedication of or the grant of a scenic easement over Type 3, 4, and 5 wetlands in conjunction with the subdivision or dedication of property. Provide for periodic maintenance dredging of storm sewer outfalls into lakes and ponds. Continue the monitoring of physical, ch,....:--1, and biologiL...! • of major lakes and ponds at appropriate intervals. Prepare or acquire public information materials regarding the reduction of nutrient loadings of waterbodies and watercourses. Continue to perform and monitor experiments with aeration as a means of reducing algal blooms and mitigating effects of nutrient loading. Conduct experiments with the harvesting of aquatic vegetation as an alternative to treatment with aquatic herbicides. Encourage owners of property riparian to lakes and ponds to maintain emergent aquatic vegetation and shoreline vegetation for filtering and wildlife benefits. Consider limited excavations in appropriate wetlands to provide open water for increased diversity of wildlife habitats. Objective: Protect and manage remnants of major plant communities. Policies: Preserve remnants of tall prairie grass, floodplain forest, oak savanna and upland woodlands within the park and open space system. Goals, Objectives, and Policies Page 3 Incorporate remnant plant communities into nature interpretative areas such as Mud Lake/Bredesen Park. Manage remnant prairies to reverse succession to woody vegetation. Objective: Improve the health and diversity of the urban forest and enhance residential and non-residential areas with the installation of landscaping. Policies: Continue to operate an effective and prompt Dutch elm disease and oak wilt sanitation program. Continue to participate in the state tree removal subsidy program for trees on private property. Manage the City nursery as a source of new and replacement stock for parklands and selected boulevards. Provide a limited number of trees for planting or replanting on boulevards recognizing that primary responsibility for boulevard planting rests with affected property owners. Ensure that a proper diversity of species are utilized for boulevard plantings. Assist property owners in species selection for boulevard plantings. Continue to require the submission of adequate landscape plans for all new developments other than single family and two family dwellings and require that such plans be bonded to ensure healthy growing conditions. Objective: Protect and manage important habitats for wildlife and rare and endangered species. Policies: Develop and manage Mud Lake/Bredesen Park for diversity of wildlife populations. Improve wildlife and fish habitats for Nine Mile Creek and Minnehaha Creek by providing riffle areas and scour holes in creek beds, wildlife plantings adjacent to creeks, and wildlife ponds on floodplain lands. Incorporate nesting islands, irregular shorelines, and suitable vegetaive cover in man-made storm water retention areas. Encourage and assist volunteer groups in the construction of Goals, Objectives, and Policies Page 4 nesting boxes and platforms for songbirds and waterfowl species. Discourage large scale feeding of waterfowl to avoid artificial concentrations and the risk of diseases such as avian botulism. Consider the habitat requirements of rare and endangered species in the process of habitat management. Objective: Maintain present air quality in Edina. Policies: Monitor, at appropriate intervals, carbon monoxide and other pollutant levels in the Southdale Shopping Center area. Cooperate with the Metropolitan Transit Commission in the establish- ment of an inter-model transfer terminal at Southdale. Continue to promote the use of shared ride taxi services. Encourage upgrading of the I-494/France Avenue interchange to relieve traffic congestion. work hours and mixed land uses to reduce congesti,u, in southeast Edina. Objective: Designate and protect from alteration significant buildings, areas, or districts which represent the historic, cultural or architectural foundations of Edina. Policies: Encourage the rezoning of properties that meet the adopted guidelines of the Heritage Preservation Board to Heritage Preservation District. Continue to attempt to receive property owner's concurrence prior to rezoning to Heritage Preservation District. Minnesota. Follow the recommendations of the Historic Building Survey of Edina, Cooperate with the Minnesota Historical Society regarding nominations to the National Register of Historic Places and restoration of historic buildings and sites in Edina. Continue to utilize Old Cahill School for educational programs involving Edina's history and culture. Goals, Objectives, and Policies Page 5 Objective: Provide for the efficient removal and disposal of solid waste in Edina and encourage the reduction of the solid waste stream through resource recovery. Policies: Maintain private contracting between property owner and hauler for solid waste removal. Periodically review the City's involvement in contracting for solid waste removal in the Morningside area in order to determine its cost effectiveness. Continue to operate the Edina Recycling Center and encourage its use by Edina residents through distribution of information materials, expanding hours of operation, and improving its physical appearance and functional aspects. Encourage purchasers of recycled metal and glass to provide more efficient means of sorting and collecting such materials to increase their potential for recycling. Consider establishing in cooperation with a private hauler a pilot door-to-door recycling program. Continue to participate with Hennepin County in reviewing alternative resource recovery plans. Objective: Protect the lands, waterbodies, and watercourses of Edina from erosion, sedimentation, slippage, and vegetation removal resulting from inappropriate uses of steep slopes. Cooperate with appropriate watershed districts requiring land alteration and grading permits for significant land alteration projects. Consult with the Hennepin County Soil and Water Conservation District in formulating erosion control plans. Provide density incentives in the Planned Residential District section of the Zoning Ordinance for preservation of steep slopes. Require increased minimum lot sizes for single family and two family dwelling lots on steep slopes. Objective: Encourage increased usage of solar energy for space heating and cooling and water heating purposes. Policies: Request the Edina Energy Commission to review standards and criteria for solar access protection. Goals, Objectives, and Policies Page 6 Consider variance requests from building height requirements,setback requirements, and lot coverage requirements to protect solar access.. Consider density incentives in the Planned Residential District Section of the Zoning Ordinance for provision of solar energy systems. Encourage private deed restrictions or protective covenants ensuring solar access. COMPREHENSIVE LAND USE PLAN TRANSPORTATION ELEMENT I. Roadway System A. System Demand /Capacity This section will examine existing demand on the roadway system, projections for demand by the end of the planning period, and the capacity of the system to handle existing and projected demand. Travel demand is measured by the number of vehicles using a particular road or section of road during a specific time period. Demand figures in this plan are total two-way vehicle trips for a twenty-four hour period. The existing traffic demand map shows twenty-four hour traffic flows for Edina streets, as generated from actual 1979 counts by the City. Trip volume during a typical weekday fluctuates from a low of almost zero during the early morning hours (4:00-5:00 a.m.) to a peak, representing approximately 10 percent of total daily trips during the late afternoon peak demand hour (4:30-5:30 p.m.). Peak demand periods in a typical day include, in addition to the late afternoon peak; the moving rush hour from 7:30 -8:30 a.m.; and two shopping and recreation peak periods, 1:00-3:00 p.m:, and 7:00 to 9:00 p.m. B. Trip Generation The number of vehicles utilizing the roadway system in a given area is a function the land use served by the roadway system. For the traffic impact of particular land uses Edina uses trip generation rates formulated by the Institute of Transportation engineers. The traffic generation of major land uses, as used in Edina, are listed below: Weekday Traffic Generation of Major Land Uses Land Use Independent Variable Range of Daily Vehicle Trips Average Daily Vehicle Trips RESIDENTIAL Low Density Single Family Dwelling 4-22 10.0 Multiple-Family Dwelling 1-12 6.1 Multiple Elderly Housing Dwelling 3-5 3.3 INDUSTRIAL Warehouse 1000 gross sq. ft. 2-17 5.0 Light Industry 1000 gross sq. ft. 2-17 5.5 Manufacturing 100 gr. sq. ft. 1-50 4.1 Industrial Park 1000 gr. sq. ft. 2-37 8.3 Comprehensive Land Use Plan Transportation Element Page 2 Land Use Independent Variable Range of Daily Vehicle Trips Average Daily Vehicle Trips OFFICE General Office 1000 gr. sq. ft. 4-44 11.7 Medical Office 1000gr. sq. ft. 38-99 75.0 Research Center 1000 gr. sq. ft. 4-10 9.3 RETAIL & COMMERCIAL Convenience Market 1000 gr.sq.ft. 290-350 320.0 Supermarket 1000 It It II 52-270 125.0 Neighborhood Retail (50, 000-200, 000 sq . ft. ) Community Retail (200,000-500,000 sq.ft.) Regional Retail (500, 00 or more sq. ft.) 11 11 11 1000 11 11 11 1000 1000 " ti il 25-160 16-92 16-61 70.0 45.1 32.8 Hotel room 9-13 10.5 Quality Restaurant 1000 gr.sq.ft. not available 56.3 High Turnover , Sit- Down Restaurant Fast Food Restaurant Service Station 11 11 1000 " 11 11 1000 " pump 48-550 375-830 103-170 165.0 550.0 133.0 INSTITUTIONAL RECREATIONAL Elementary School Student 0.3-0.7 0.5 High School Student 0.7-1.2 1.2 Junior College Student 0.9-75 1.6 Library 1000 gr.sq.ft. 29 -75 41.8 City Park Acre I -60 8.0 County Park Parking Spaces 0.4-21 2.2 Golf Course Parking Spaces 3-16 8.2 Source: ITE Trip Generation Handbook, Institute of Transportation Engineers, 1976 The City of Edina is nearing full development and no significant additions to the roadway system are expected. During the planning period trip generation rates will be a valuable tool for assessing development and redevelopment proposals. Trip generation rates and peak generation hours of land uses can help predict the mix of various uses that contribute to the highest attainable operation efficiency of the roadway system. Comprehensive Land Use Plan Transportation Element Page 3 Metropolitan Council Year 2000 Projections for Edina TAZ Total Population Total Households Total Employment 807 2178 796 401 808 1643 597 701 809 3086 896 301 810 2559 896 1002 811 4835 1989 4009 812 2985 1194 1503 813 2106 697 401 814 2946 995 200 815 1943 697 501 816 3564 1393 601 817 2498 995 100 818 5335 1791 2004 819 2822 995 401 820 354 149 4009 821 1896 697 1503 822 1515 498 1303 823 5010 1990 14030 824 2.4,, I ',ILL 2004 825 148 50 5011 826 3945 1791 7015 TOTAL: 53300 20400 47000 The most significant increase in traffic generation in Edina will occur as a result in the growth of employment opportunities in the City, especially in south- eastern Edina. The projection of 47,000 jobs by the year 2000 is approximately double the total employment of 1970. B. Roadways Edina presently contains 22.52 miles of streets and highways with bitumous or concrete surfacing. As a land use, this represents approximately 1,959 acres or 17% of the land area of the City. One hundred sixty-two miles of the system total are maintained and controlled by the City of Edina with the remainder maintained and controlled by Hennepin County or the State of Minnesota. The 1980's will see only minor changes in the roadway networks in Edina. Although there will not be large-scale additions or upgrading of the road system 207 1,00. 600. 1206 CITY OF EDINA henti,* county minnesota TRANSPORTATION ANALYSIS ZONES regBY:Mel DENOTES ZONE BOUNDARY Comprehensive Land Use Plan Transportation Element Page 4 during the planning period,several important issues will impact on Edina's system of streets and highways. I. Congestion on streets and highways and the impact of upgrading streets on adjacent residential areas. 2. The escalation in the cost of maintaining, improving, building, and rebuilding streets and highways and possible loss of revenues to support needed improvements. 3. Safety and the mixture of transportation modes on public streets, especially pedestrians and bicycles. 4. Parking and circulation problems within and near commercial districts. 5. The impact of pollutants, especially noise and combustion by-products, on residential areas adjacent to high volume streets and highways. 6. The jurisdiction over certain roadways in Edina, especially Interlachen Blvd., West 50th Street, and France Avenue north of West 54th Street. Roadway The function of roadways ranges from the local street serving individual properties to the principal arterial which connects sub areas of the region and provides access to the metropolitan centers. Tables I and 2 illustrate the functional classification system and characteristics of the regional network. Map T-2 illustrates the functional classification of streets and highways within Edina. There are no principal arterials located in Edina, however, Interstate 494 (a principal arterial) is located near the southern border of the City. All streets not shown on Map T-2 are local in function and are not a part of the regional system. Edina does not anticipate significant changes in the classifications shown on Map T-2 during the planning period. Current traffic counts and year 2000 traffic projections indicate an existing system that is adequate for planning period demands. However, some congestion and delay may be experienced during peak traffic hours. The classification of streets and highways contained in this plan varies from the classification transmitted to the City by the Metropolitan Council in 1977. The changes are in the following areas: Comprehensive Land Use Plan Transportation Element Page 5 I. Southwestern Edina. The development of southwestern Edina has occurred at densities lower than estimated by planning documents of the late 1960's and early 1970's. As a result sections of Gleason Road have been deleted by this plan. No additions to the regional system have been made in this area. 2. Northeastern Edina. In order to include complete roadway segments and to represent existing use levels, sections of Brookside Avenue, Wooddale Avenue, and Valley View Road have been added as collector streets. 3. Southeastern Edina. Traffic volume has dictated the upgrading of Xerxes/York Avenue south of CSAH 62 from collector to minor arterial status; 66th Street/Valley View Road to CSAH62 is added as a minor arterial; a new street (West 771 Street) is added as a minor arterial to support east and west circulation along Interstate 494; a modified frontage road that will function as a part of the ring-route is added as a collector street. C. Roadway Improvement Local Systems: Almost all local street surfaces within Edina permanent hard ct:rfacc covering. New developments in the City are required to provide surfaced streets as well as curb and gutter. Public street improvement projects that will result in assessment to property owners are undertaken following public hearings by the City Council, and are undertaken under City control or supervision. Upgrading of street surfaces in Edina neighborhoods will be undertaken following petition by the neighborhood and approval by the Edina City Council following public hearings. The City anticipates that neighborhood scale upgrading and replacement of streets and related public improvements and utilities will be undertaken as warranted during the planning period. During the decade of the 1970's the Country Club and Morningside neighborhoods received extensive upgrading of public streets and utilities. The decade of the 1980's will see a continued effort to assure that City streets remain in a year-round hazard-free condition. Surface repair of pot holes and frost heave damage will be undertaken at the earliest possible date to assure minimal damage and traffic delay. Edina has and will continue to attempt to minimize the amount of salt applied to street surfaces by using sand and by examining the feasibility of salt substitutes as they appear. D. Regional Most streets and highways of metropolitan significance in Edina are not controlled Comprehensive Land Use Plan Transportation Element Page 6 or maintained by the City. Elements of the metropolitan system maintained by Edina (collectors, and segments of minor arterials) receive priority snow removal and maintenance attention. Most roadways of metropolitan significance in the City have been upgraded to standards appropriate to their projected function. Interlachen Boulevard in northern Edina, controlled by Hennepin County, may be upgraded during the planning period, but it will continue to function as a collector street. E. Upgrading, Expansion, and Extension Major upgrading, capacity expansion, and extension projects will be limited (except for the ring route system discussed below) during the planning period. Projects anticipated are detailed below: I. Circulation The only significant circulation improvement anticipated during the planning period is the westerly, extension of Interlachen Boulevard to County Road 18 and 7th Street in Hopkins. 2. Freeway /Access Item 2, Map (T-3) identifies the area near Marth Road and West 78th Street for a partial interchange access to Interstate Highway 494. Subject to funding limitations and improvement priorities of the State Department of Transportation (MN DOT) and the Metropolitan Council a partial interchange should be added at this location before 1990. 3. Ring Route The ring route system (area 3,T-3) is a concept designed to promote traffic circulation along Interstate 494, Commercial and Industrial areas of southeast Edina, southern Richfield, and west Bloomington, and to divert purely local traffic from the freeway. First proposed in a study by Daniel Mann Johnson and Mendenhall (DMJM) completed in 1972 for the cities of Richfield, Bloomington and Edina, the DMJM study offers many traffic and land use suggestions aimed at minimizing traffic congestion in the Southdale area and the 1-494 corridor. The 494/100 task force, composed of members from MNDOT, Hennepin County, Richfield, Bloomington, and Edina, studied and made modifications to the DMJM report in 1972. Major roadway recommendations of the task force still being pursued are completion of the ring route system and improvements to major interchanges along 1-494. Edina continues to support task force recommendations, especially improvement to the France Avenue/494 Interchange. Comprehensive Land Use Plan Transportation Element Page 7 F. Traffic Safety Seventy percent of the traffic related accidents in Edina occurred east of Highway 100, and over one-third of the accidents occurred in the Southdale area according to Police Department records for 1978. In the same year France Avenue alone accounted for 21% of all accidents in the City. Although the recent installation of traffic controls along York Avenue and improvements to France Avenue near Southdale should substantially improve traffic safety conditions, southeast Edina will remain the City's highest accident area. The Traffic Safety Committee, composed of staff and resident members, makes recommendations to the City Council for traffic control improvements. It is anticipated that the existing system will continue throughout the planning period. G. Land Use Compatibility Land uses, especially residential, are vulnerable to the negative effects of the roadway system. Where possible the effects of highway noise and exhaust emissions should be minimized on adjacent land uses. The means of reducing the impact of high volume roadways is by using distance as a buffer. However, in fully developed areas with high demand for additional development this solution is usually not practical. Buffering, through berming, noise barriers and landscaping present alternative methods of providing protection for land uses adjacent to high volume roadways. Traffic routing and control should be exercised to assure that purely local streets are not used as alternates to the collector/arterial system. Restricting commercial and non-local traffic to the system designed to accomodate it is the best available protection for residential areas. Residential development in close proximity to high volume streets and highways should be limited to development types that offer the most flexibility in minimizing highway impact. Multiple family housing of various types should be utilized in development and redevelopment near high volume streets and highways; single family housing should be discouraged. Comprehensive Land Use Plan Transportation Element Page 8 H. Objectives and Policies (Roadway System) Goal: To provide a system of roadways that complements and is compatible with other municipal systems and the Metropolitan System. Objective: Maintain and improve the existing system of management, maintenance, and replacement of the street system to assure high quality, hazard free conditions. Policies: Repair pot holes, frost heaves and other intermittent road damage promptly. Continue present snow removal policy priorities based on function and traffic volume. Pursue repair or replacement of substandard bridges and bridges presenting traffic safety or movement problems. Continue to minimize use of deicing salts and investigate means to reduce impacts on adjacent waterbodies and vegetation. Support research efforts into more efficient and cost-effective management, maintenance and replacement of street surfaces. Objective: Achieve a balanced roadway network that eliminates non-local traffic from purely residential areas through a complete and inter-connected system of of collector and arterial streets. Policies: Provide logical street networks to connect residential areas with the regional highway system and local activity centers. Upgrade existing streets to standards appropriate to their level of use and function. Promote improvements that increase the level of safety, minimize travel time, and enhance accessibility and capacity of roadways. Objective: Achieve a roadway system that operates at maximum efficiency levels. Emphasis should be on improvements to management, maintenance and utilization of the existing street and highway system. Comprehensive Land Use Plan Transportation Element Page 9 Continue to limit on-street parking in and near commercial areas. Provide additional traffic control devices only after study and recommendation by the Edina Traffic Safety Committee. Continue to support a partial interchange to 1-494 in the vicinity of Marth Road. Continue to participate in efforts to improve the circulation of traffic along 1-494, especially efforts to improve access at France Avenue. Continue to emphasize diverting intra-area trips from the principal arterial system to an internal circulation system. Coordinate with MNDOT, Hennepin County, and the cities of Richfield and Bloomington, the implementation and construction of the ring route concept along 1-494. Continue to cooperate with other agencies having jurisdiction over streets and highways in Edina to assure their good condition and operating efficiency. To the extent possible,separate conflicting uses on the public street system to minimize Spez.:;..: be given to pedestrian and bicycle routes. Support efforts to upgrade arterials influencing local traffic flow, especially along the common section of 1-35W and CSAH 62. Support the upgrading of CSAH 18 south of I-494,including a bridge over the Minnesota River. Objective: Minimize the impact of high volume streets and highways on adjacent land uses. Suggest the utilization of adequate transitions and buffers including but not limited to earth berms, walls, landscaping and distance to mitigate the undesirable impact of high volume roadways. Require sound mitigating features for residential development adjacent to high volume roadways. Discourage single family land use along high volume roadways. Noise attenuation features should be the responsibility of property owners and developers of land near high volume roadways. Comprehensive Land Use Plan Transportation Element Page 10 Objective: Promote higher per vehicle occupancy during peak periods to achieve reductions in energy consumption and to relieve congestion on roadways. Encourage flexible work hours for employees of major employers in the region. Encourage car-pooling, van-pooling, shared rides by private companies and individuals. Encourage combined trips and shopping within the sub-region. Provide preferential treatment for transit and high occupancy vehicles on street and highways as needed. Include transit planning in the construction or upgrading of streets and highways. Promote mixing of land uses, as detailed in the land use section for developing portions of southeast Edina; mixed use will reduce trips and reduce peak hour demand on the roadway system. II. Public Transit Public transportation in the metropolitan area is now ten years old. During this period the amount, level, and quality of service delivered by the system has improved significantly, but at the same time the cost of delivering the service has risen dramatically, resulting in large public subsidies. Current MTC plans and legislative mandates call for only a modest expansion of services, and the possibility of small-scale demonstration projects. However, the prospect of rapidly decreasing energy supplies along with dramatic price increases may require a more aggressive public transit program for the 1980's. Reducing the dependence on the single passenger automobile must be a top priority during the 1980's. The Metropolitan Council has established a goal of increasing average vehicle occupancy from 1.4 to 1.6 persons per vehicle during peak periods by 1990. Progress made towards reducing traffic congestion and energy use will only result from large-scale efforts by both the public and private sectors. Capturing riders from low density suburban areas will require innovative and flexible approaches in transit programs. Comprehensive Land Use Plan Transportation Element Page II A. Existing Transit A discussion of existing transit services includes regional service, local service, and private transit initiatives. Regional service is provided by the MTC through the existing bus service. Local service involves the identification of local transit needs, cooperation with regional transit providers, and limited, small - scale transit services within the City. Private transit involves company sponsored car-pooling, van-pooling, and other initiatives designed to lower energy consumption and traffic congestion during peak periods. I. Regional The MTC has primary responsibility for the planning and implementation of transit service throughout the metropolitan region. Map T-4 illustrates existing bus routes that operate in Edina. Existing bus transit service is either regular route service or express service. Regular route provides fixed route service at varying headway times throughout the day and limited weekend service. Express service provides peak hour service to the Metro Center and offers no weekend service. The level of service available in Edina corresponds generally to residential density and commercial activity. The area east of Highway 100, which contains t.- density and major shopping and employment areas, has a much higher level of transit service •than western Edina which is primarily low density residential. Edina is completely within the Metropolitan Urban Service area (MUSA) as defined by the Metropolitan Council. For planning purposes the MUSA has been divided in 12 subregions, subordinate to the metro centers (downtown Minneapolis and St. Paul). Each subregion contains all necessary support services including a regional commercial area. Edina is located in subregion 3,which also contains most of Bloomington, Richfield, and parts of south Minneapolis and St. Louis Park. The Southdale major activity center serves as the focal point of subregion 3. The planning subregions allow for transit needs assessment and implementation planning that acknowledges the importance of the several regional commercial and employment centers of the metropolitan area. The transportation guide plan of the Metropolitan Council contains policies that promote equal emphasis on transit from the subregion to the Metro Center and transit completely within the subregion. Currently, MTC service is primarily oriented toward Metro Center service. The large number of people living, working, and shopping within the subregion warrants increased attention to subregional transit service. The Sippel study is the best indicator of resident attitudes toward transit at the time. Although the study is now six years old, it was completed at a time of significant concern about energy supplies. The study does not indicate CITY OF IMIIEKOPR SE1.11,01 COW, - r Kt, Alin S I J .17j. OR•ERIAR PARK M C0.111 SE S s4.• BUS RITES mama EXPRESS SERVICE TO DOWNTOWN MINNEAPOLIS 1111111 TO AIRPORT NNW REGULAR BUS ROUTES Comprehensive Land Use Plan Transportation Element Page 12 an overwhelming willingness to use public transit, but does give clear indications of the types of preferred service and the desired destinations. The study indicates a need for increased transit service to the subregional activity center. It also suggests a need for a circulator system serving the major activity center including Southdale and the 1-494 strip. Express service via the 35 express routes represents convenient economical, high quality service to Edina residents working in downtown Minneapolis. The Sippel study indicates this is the most preferred service for residents working in the Metro Center. Increases in express service, making it available to more residents, is encouraged. 2. Transit Ridership Traditionally, transit ridership has been predicted by residential density, distance traveled, car ownership, and the quality of transit service available. The rapid escalation of energy prices and less ambitious plans for highway improve- ment and construction during the 1980's should also impact ridership. However, the high income levels in Edina are likely to make residents resistant to giving up the private auto for work or leisure. Success in attracting more use of the transit system will clPrw,nd on, ffn r t c to improve both the level and quality of service within the Qin.; lAuwntown Minneapolis, the airport, and other activity centers. B. Transit Improvements The South Hennepin Route Ridership Improvement Project (SHRRIP), completed in the summer of 1977, examined transit service and transit potential in an area that included southern Edina, Bloomington, Eden Prairie, Richfield, and south Minneapolis. The SHRRIP was designed to provide an implementation framework for transit improvement in the study area for a ten year period. The following study recommendations for Edina were made by the plan: -Transit must be an important part of the community and demonstrations of new ideas are mandatory. -A multi-function transit terminal should be located at Southdale near the intersection of 66th Street and France Avenue. -Existing transit routes should focus on the new terminal. -A new localized transit service should be implemented that 'provides the following functions: Source: South Hennepin Route Ridership Improvement Project Report by B.R.W. Inc. and Simpson and Curtin, June 1977, pp. 61-62. Comprehensive Land Use Plan Transportation Element Page 13 *Connects neighboring residential areas to activity center. *Provides access to express service to downtown Minneapolis. *Provides circulation and distribution within activity center area. The key elements of the SHRRIP, a transit terminal at Southdale and a feeder-circulator system have not been implemented. Both improvements are essential to improvement of transit ridership in Edina. I. Major Transit Terminal The SHRRIP study recommended that a major transit terminal be developed at Southdale as a focal point for transit service, as a convenient and comfortable waiting and transfer area, and as a promotion and information center for the area. The study examined four alternative locations for the terminal and recommended that MTC acquire and develop the site in the northwest corner of Southdale Center that is currently Dayton's Garden/Ski Store. This development (shown on Map T-5) is supported by Edina. 2. Localized Transit Service Transportation policies of the Metropolitan Council call for transit service to major activity centers. In addition to the recommendations for localized transit service contained in the SHRRIP, other studies, including the "Edina Transit Study" and the "494/Southdale Corridor Transportation Study (DMJM)", have recommended improved transit service to and within the Southdale area A system to provide transit to the area from residential areas and a system to provide circulation within the area are implementation priorities for the planning period. Connections from adjoining residential areas to the Southdale activity center could be provided by a mini-bus system. Transit for work, shopping and leisure as well as a link to the metropolitan bus system would be provided for the area shown on map T-6. The second element of local transit development is a system to provide circulation and distribution with the Southdale major activity area. This system is needed to reduce the need for short trips within the area that contribute substantially to traffic congestion. Survey results of the "Transportation Transit Study" by Curtis L. Sippel and Associates in 1974 revealed the employees in the area considered a transit circulation system important to their decision to utilize transit for the work trip. Both the transit circulation system and the residential transit link to the center are key elements in a traffic solution for the Southdale area. Comprehensive Land Use Plan Transportation Element Page 14 C. Private Transit One of the most effective, ecnomical approaches to providing an alternative to the private automobile for the work trip is company sponsored car and/or van pools. Pooling efforts can significantly impact on energy consumption and traffic congestion within major activity centers. This approach must be considered a major element of transit solutions for activity centers. Edina strongly supports this approach and will examine possible incentives to its implementation in the City. D. Special Transit Transit serves two basic groups within the population: captive riders, those that because of age, or physical handicap must rely on transit; and non- captive riders, those riders that choose to use transit but do not depend solely on the transit system. Special transit addresses the needs of the captive rider. Edina, as a first ring suburb with an aging population, is experiencing increased demand for special transit services especially for the elderly. It is expected that this demand will continue to grow during the 1980's. Special transit needs should be addressed at both the regional and local level. Regionally, the MTC operates Project Mobility, a demand responsible service and is studying modification to vehicles for accessibility. The operation of small specially equipped vehicles operating on a demand responsible basis appears to offer the best service at the least cost. Edina supports development of special transit on a regional basis. Locally, the City has implemented a special transit service designed to make services, and activities, available at the City's senior citizen center, accessible to Edina's senior citizen population. Maintained by the City and driven by volunteers, the van, equipped for wheelchair bound individuals, picks up people at their homes, transports them to the senior center and returns them home. Expansion of this or similar services will depend on demand and available resources. Comprehensive Land Use Plan Transportation Element Page 15 III. Goals, Objectives and Policies: Goal: It is the goal of Edina's Transit Plan to provide attractive alternatives to the private automobile for work and leisure through coordinated public and private efforts on both a local and regional level for both captive and non-captive riders. Objective:To increase utilization of public and private transit alternatives to the single person private automobile, especially during peak demand periods, to reduce energy consumption, achieve better utilization of the land and roadway system in Edina. Policies: Incorporate in the land use planning process consideration for potential transit utilization. Cooperate with the MTC in educational efforts designed to encourage increased transit ridership. Encourage rusinesses to r) rs • I -r-nsored transit plans for employees. Consider lesser parking requirements for businesses that establish and maintain programs to decrease traffic in commercial areas. Support modifications to the highway system designed to give preferential treatment to transit vehicles. Encourage local business to consider flexible work schedules to improve traffic flows on major streets and highways. Encourage local businesses to consider subsidies to employees using transit for the work trip. Provide preferential treatment for transit and other multi-family vehicles during peak traffic hours. Comprehensive Land Use Plan Transportation Element Page 16 Objective: -To achieve a level of transit service capable of meeting the transportation needs of Edina residents for travel within the community, the sub- region (Metro Council Subregion 3), and to the Metro Center. Policies: Support transit improvements by the MTC that place an equal emphasis on transit within the subregion and transit to the Metro Center. Support the construction of a major transit terminal at the site of the Dayton's Garden Store as a major transit focal point at the earliest possible date. Support the development of a demonstration project designed to provide transit access to the Southdale corridor major activity center from surrounding residential areas. Support the development of a demonstration project to provide a circulator system within the Southdale Corridor major activity center. Support the extension of regular route bus service to areas of multi-family housing in the City. Support coordination between subregional and metro center transit service to of transit by minimizing transfers and delays. Encourage study of transit alternatives for both sub-regional and metro center services including, but not limited to light rail and exclusive transit lanes. Cooperate in future efforts to establish a modal transfer point in Edina, possibly in the vicinity of Minnesota Highway 100 and CASH 62. Support general expansion of regular route and express route service in Edina. Objective: Provide transit service for the elderly and physically handicapped, who are unable to utilize conventional transit vehicles, at a service level necessary to meet basic work, shopping and leisure needs. Policies: Support continued development of demand responsive handicapped transit service by the MTC. Continue to operate existing local senior transit service and expand service as warranted. Comprehensive Land Use Plan Transportation Element Page 17 IV. Bicycle and Pedestrian System The demand for increased attention to facilities for bicycles and pedestrians is expected to be strong throughout the 1980's. A variety of reasons, including energy awareness and physical exercise,will require increased investment, both public and private, in the City's facilities to accomodate bicycle and pedestrian traffic. Goal: Provide facilities for pedestrians and bicycles that serve the transportation and recreation needs of Edina residents, and that operates without conflict with other transportation modes. A. Pedestrian Paths (Sidewalks) An excellent street and highway system, and the availability of cheap gas during the period of rapid growth in Edina,made the provision of sidewalks in new subdivisions unnecessary. Since that time circumstances have changed dramatically and the routes has increased, and will continue to increase during the planning period. Sidewalks and other pedestrian paths serve two important functions: the provision of safe lanes for recreation; and the provision of access lanes to opportunities. By providing a system that gives pedestrian access to opportunities (employment centers, commercial centers, parks, entertainment facilities), most of the demand for recreation (exercise) can be satisfied. Existing sidewalks in the City are concentrated in the Morningside and Country Club neighborhoods where development occurred prior to 1930. After 1930, when the private automobile began to take over for the street cars few sidewalks were provided. Map T-7 details the existing sidewalk system in Edina. Recently, a more general awareness of the need for a sidewalk system has developed. The need for an improved and expanded sidewalk system in Edina has been studied by the League of Women Voters, by a Citizens Task Force, and by City staff. The recommendations of these studies have been synthesized in the proposed sidewalk system shown on Map T-7. Objective: To provide a rational system of sidewalks that will enhance pedestrian safety, encourage non-motorized transportation and improve access to public transit and activity centers. 5N trio Ale srivt .ve bVII3V4i1 IL 11101--: Nat-. MI I 11111W Ill now n 7 • Vl0511014 I 1,141100. M1.411311 JO A.1.10 Sallifil liuno3 uldeuu JO A113 Comprehensive Land Use Plan Transportation Element Page 18 Policies: Provide short link sidewalks that improve and connect the existing system. Provide sidewalks and safe crossing in high pedestrian danger areas, including high traffic streets, and commercial areas. Provide sidewalks for transit access. Provide sidewalks in high density residential areas. Provide sidewalk links within the Southdale major activity center. Provide sidewalk links to public service centers, and recreation areas. Provide sidewalk access to major employment centers. B. Bikeways The drive to provide safe and suitable paths for bicycles began in Edina in the early 1970's. Citizen and City staff committees 1"-en actively ;- planning a system of bike paths for. Edina. Early warming efforts were airectea toward providing bike paths for recreation and to provide connections to high activity City parks. During the planning period demand for a wider variety of use and access is anticipated. The system of bikeways in Edina will expand as a result of increased demand for access to employment centers, shopping, and recreation areas. Although the ideal solution to providing bike paths is to provide paths that are completely separated from public streets, it should be realized that in many sections of the City it is not financially or physically feasible. In low density, low traffic residential areas, the public street system and sidewalk system must serve as the connecting link to the principal bike path system. Objective: To provide a system of bike paths that resonds to the needs of Edina residents for recreation and non-motorized commuting. Policies: Complete the proposed bike path system around major activity parks, including neighborhood links. CITY OF EDINA hennepin county Girt OF EFiNA HENNEPIN CO1Ali 1' I IAINNESOIA al LH LEIMULL1 11 \ ir Comprehensive Land Use Plan Transportation Element Page 19 Provide links to connect elements of the local system and systems of neighboring communities. Provide adequate, signage along all bike paths including areas of conflict with pedestrians and automobile traffic. Construct all new separated bike paths according to MNDOT "State Aid" standards. Consider bike path access to major commercial, employment, and public facility centers in the City. Encourage the provision of safe storage areas near public and private facilities at the expense of the property owner. Provide for year round multiple use of exclusive bike paths wherever feasible. Provide new, separated bike paths within existing rights of way whenever possible. COMPREHENSIVE LAND USE PLAN COMMUNITY FACILITIES ELEMENT 1. Public Water System The supply and distribution of sufficient amounts of potable water through the public system contributes to the health, safety, and convenience of the community and does so in a very cost efficient manner. Edina's existing water system serves consumer demand with high quality groundwater in quantities sufficient to meet demand in all but the most severe conditions. It is the intent of the water system plan to establish a framework that will allow the system to continue to satisfy demand with adequate amounts of high quality drinking water throughout the 1980's. Goal: It is the goal of the City of Edina to insure that adequate amounts of high quality water are available and to distribute the water in the most cost efficient manner. A. Water Supply Edinaic water sunnly system relies on groundwater from the Jordan and Hinkley aLi .e hundred percent of system demand. Currently, Edina has 17 active wells, 14 in the Prairie du Chein-Jordan Sandstone and 3 in the Hinkley Sandstone. The Jordan aquifer, the major source of ground- water in the metropolitan region, slopes at a rate of 8 to 10 feet per mile and produces high quality, hard water at 14,400 gallons per foot per day per mile. The Hinkley aquifer slopes at a rate of 9 to 10 feet per mile and produces water of similar quality and hardness and at about the same rate as the Jordan. Water extracted from the Jordan and Hinkley aquifers requires minimal treatment prior to distribution. Chlorine and fluoride are added to the entire water supply. Additionally, three of Edina's 17 wells are equipped with iron filters. Water entering the distribution system is unsoftened, containing approximately 14 to 17 grains of hardness per gallon. The volume of water pumped by the municipal system varies dramatically by season but has remained relatively stable for total production in recent years. When water demand is at a peak, typically July, all 17 of the City's wells will be pumping to capacity. In February, generally the lowest demand month, only 3 wells may be in use. The existing system has been able to meet the demand for water even in uncommonly dry years. However, demand may exceed the capacity of the system during the planning period. Planning for new wells to insure reserve capacity and encouragement to conserve water by the system's users will insure adequate water supplies for the 1980's. In recent years, the quality of groundwater has become an increasingly important issue. Because most of Edina's water is extracted from one MAY APR JUNE IJU JAN i B I MAR AU S P40 TIN° DEC WATER PUMPED BY MONTH FOR YEARS 1975-1979 1975 — MIIIMINIIIIMOINO OMNIIIMMM 111•• MOM 4•1•10111111111•11•1 IMO OW 41MIIMIM11111.10 1 CITY of EDINA HENNEPIN COUNTY MINNESOTA 500 1976 1977 1978 1979 0 I 7350 0 ac 300 a 1- 4 200 CD z 0 150 110 Comprehensive Land Use Plan Communities Facilities Element page 2 aquifer, and all the City's water is from groundwater sources,protecting the quality of that source is extremely important. It is also important to note the large number of communities dependent upon the groundwater supply of the Jordan aquifer. Cooperative efforts should be undertaken and supported that would lead to insuring that the aquifer continues to support the water needs of the region. The importance of efforts to protect the quality of the water supply has been dramatized recently by the threat to the water supply resulting from pollutants from an abandoned creosote plant in neighboring St. Louis Park. Although no contamination of Edina's water supply has been detected, shallow aquifers in the vicinity of the abandoned facility are highly polluted. The State Health Department is researching methods of eliminating or reducing the possibility of contamination of the aquifers that supply water to area communities. Edina is cooperating in this effort and other efforts designed to minimize the risk of similar threats to the area's drinking water supply. Objective: To continue to utilize ground water for the City's water supply, and to insure the quality and dependability of groundwater sufficient to meet peak demand through 1990. Policies: Encourage and support efforts designer T^ nrovide adequai.,- recharge and insure the quality of the Jordan and Hinkley aquifers. Protect groundwater recharge areas within the City to the extent this can be accomplished by preserving floodplain, wetlands, and public open space lands. Irrigation bans should continue to be enforced as required in dry years, and should be supplemented by the encouragement of other voluntary conservation measures as needed. Plan to provide adequate water supplies for normal peak demand and provide back-up supplies (wells) in case of partial system failure. Closely monitor changes and trends in water demand and provide additional wells accordingly. Continue to cooperate with neighboring municipalities and the Minnesota Department of Health in efforts to prevent, detect, and eliminate groundwater pollution resulting from creosote contamination, including but not limited to the periodic testing of groundwater supplies for evidence of contam- ination: Continue to utilize groundwater to supply system demand. Comprehensive Land Use Plan Community Facilities Element page 3 B. Water Distribution System Only minor lateral additions are needed before the Edina water system is complete. All major trunk water mains are in place at this time. The water system contains 190 miles of water main, 3 storage towers, and one underground reservoir. The water distribution network, with a storage capacity of 6 million gallons is depicted on the Water Distribution Map in this section. In addition to storage, the tower and reservoir system provides adequate water pressure throughout the system. System wide pressure averages 70 pounds per square inch, however, differences in elevation within the City produce pressures ranging from 50 to 120 pounds per square inch. Additional demand and extension of the water distribution system will result principally from development of the remaining vacant land in the City (map included). Although some small areas still utilizing private wells will be added to the system,their impact on the demand will be minimal. there are, however, several areas in the City that are served by the public system of neighboring municipalities. The entire Morningside neighborhood as well as several areas along and either side of the City's borders are served through cooperative agreements with Minneapolis, Richfield, St. Louis Park, and Eden Prairie. In southeastern Edina near Washington Avenue, the City presently serves a portion of Eden Prairie with water. It is expected that Eden Prairie's system will take over service in this area during 1980, and that are: Edina west of r: Road 18 will be served under cooperative agreement by Eden Prairie. The cooperative service agreements allow the most efficient delivery of water to residents by preventing duplicate trunk and lateral extensions. It is expected that the areas served under cooperative agreement will continue to be served by outside supplies through the planning period. Private Systems Private wells in Edina are primarily a result of development preceeding the extension of public utilities. Although scattered neighborhoods in the City still have a significant number of operational private wells, it is expected that by 1990 almost all City residents will depend on the public system as their primary supply. Most residences with private wells have public water availability and can connect to the public system at will. The small areas, in existing service areas, that do not have service will be connected following petition by a majority of affected properties. Maintaining adequate system pressure and insuring the dependability of the distribution system are primary concerns for the planning period of the 1980's. Although most elements of the system will remain in good condition throughout the 1980's ,some replacement will be required in older sections of the system. The primary maintenance problem will continue to be breakage caused by frost. CITY OF EDINA hennepin county miiinesota ate WO. 60$ 1206 tzTL SYSTEM O RESERVOIR O WATER TOWER 0 WELL - WATER DISTRIBUTION NAM SERVICE BOUNDARY Comprehensive Land Use Plan Community Facilities Element page 4 Objective: To continue to supply an uninterrupted flow of water at adequate pressures in the most cost efficient manner. Policies: Dead-end, stub lines should be avoided; all water lines should be looped to avoid stagnant water and insure adequate pressure. Pressure and flow problems in the system should be isolated and corrected. Public water supply should be available to all properties in the City. The City should continue cooperative service agreements now in effect and enter into new agreements as appropriate. Properties with access to public water , now utilizing a private well should be encouraged to connect to the public system. Normal working water pressure should be at a minimum pressure of 65 pounds per square inch in residential areas, and 100 pounds per square inch in commercial /industrial areas. Private h systems ...ever possible. 11. Sanitary Sewers Goal: It is the goal of the City of Edina to provide the effective, efficient removal of sanitary sewage for all areas of Edina in order to protect the health, safety and welfare of its citizens and to protect the environmental assets and drinking water supply of the community. A. Metropolitan System The disposal and treatment of waste water is directly related to the protection of the health, safety, and welfare of the citizens of Edina. An effective sanitary sewer system also protects the general environment, including surface water and ground water supplies. In Edina, disposal of waste water is accomplished through a City owned and maintained system feeding several metropolitan sewer interceptor lines that carry waste water to treatment facilities serving the metropolitan region. Comprehensive Land Use Plan Community Facilities Element Page 5 Except for a small area in south central Edina, all sewage moves through the metropolitan interceptor system to the Pig's Eye Treatment facility and ultimately into the Mississippi River. Sewage from approximately 80 acres in south central Edina flows through Bloomington for treatment at the Seneca facility inEagan and is discharged into the Minnesota River. Expansion of metropolitan facilities to handle the increasing volume of waste water and the more stringent standards for treated waste water will require major capital expenditures on the metropolitan system. Edina should respond by planning to improve the efficiency and maintain the high quality management of the local system. B. Local Sanitary Sewer System The local sanitary sewer system consists of trunk and lateral sewer lines that collect and carry sewage flows to the metropolitan sewer system. There are no metropolitan interceptors flowing through the city and none are expected during the planning period. Edina's sanitary sewer system is in- place, although minor lateral extensions will be added to serve the City's remaining undeveloped land. The system is subdivided into five sewer districts anu a corresponding number of major local trunk lines. The local trunk lines empty into metropolitan interceptors at four metering points along the City's eastern border. Three of Edina's trunk sewers, serving approximately two- thirds of the City's area, flow into the Richfield interceptor, located at approximately 75th and Xerxes Avenue South. On January 1,1978 Edina's sanitary sewer system contained 173.63 miles of trunk and lateral sewer lines. Reinforced concrete, clay, and cast iron pipes are used for the City sewer system. Almost all of the City's trunk system is reinforced concrete, while laterals are clay, concrete, or cast iron depending upon application. Present plans anticipate that extensions and replacement of the system will utilize materials compatible with the existing system. Objective: To provide sanitary sewer service appropriate to the City's develop- ment and redevelopment plans. Policies: The City should plan for full development of the public sanitary sewer system by 1985. The impact of redevelopment and intensification of land use on the capacity of the sanitary sewer system should be assessed for all development and redevelopment proposals. ID LIFT STATIONS 000.11TRUNK SEWERS DISTRICT BOUNDARY SANITARY SEWER CITY OF EDIWA hen* candy mioneseta Comprehensive Land Use Plan Community Faciltites Element Page 6 All extension or replacement projects on the public sanitary sewer system should be based on ultimate land use as shown on the City's general land use map. C. System Demand and Expansion Land remaining to be developed in Edina is expected to contribute an additional 800,000 gallons of waste water per day (0.8 mgd) to the metropolitan system during the 1980's. (Of the increased flow of 0.8 mgd approximately 60% will occur by 1985.) This projection is based on Metropolitan Waste Control Commission (MWCC) projection factors and the City's general land use plan and inventory of vacant land. Existing and projected sewage flows will result in a total flow of 7.6 mgd into the metropolitan system by 1990. It is expected that almost all of the increased flow will enter the metropolitan system at the 75th and Xerxes interceptor. Infill development and redevelopment served by other interceptors is not expected to significantly impact metropolitan interceptor capacities. The MWCC has projected a total daily sewage flow of 7.88 mgd. based on a population of 55,000 for Edina by 1990. The ultimate sewage flow projection of 7.6 mgd made by the City projects ar of 10.5% --- present flows, but is 9.7% below MWCC projection for the same period. Sanitary sewF.ge generation from Edina, based on a maximum 1990 population of 53,600, will be within the planning limits established by the MWCC and will not require increased capacities for the metropolitan interceptor system. Objective: Achieve average daily sewer flows that do not exceed the planning limit established by the Metropolitan Waste Control Commission and the Metropolitan Council. Policies: Continuously monitor sewage flow at principal metering points to determine use by existing and developing land uses. Reduce infiltration from external sources into the sanitary sewer system. Allow development and redevelopment consistent with the General Land Use Plan. D. System Maintenance and Improvement Maintaining and improving the general efficiency of the sanitary sewer Comprehensive Land Use Plan Community Facilities Element page 7 system and detecting and eliminating trouble spots will be the primary emphasis areas of the City's sewer plan for the 1980's. Although the majority of lines in the system are adequate, portions do experience a variety of problems that reduce the efficiency of the system. The infiltration of external water, intrusion by tree roots, corrosive discharges, and deterioration resulting from age are all threats to the efficient operation of the sanitary sewer system. The infiltration of water, external to the sewer system, is the most serious problem of the City's sanitary sewer system. Basement sump pumps, roof leaders, pipe breaks, flooded manholes, poor connections to the public system, and leaking joints increase the amount of waste water carried by the sanitary sewer system. The result is a reduced capacity of the system for waste water and an increase in the cost of treatment. Controlling the volume of external water entering the sanitary sewer system will become increasingly important dui ing the planning period. Increased flows to treatment facilities and the increased cost of treatment resulting from more stringent purity standards for discharged waters will require increased emphasis on the efficiency of the sanitary sewer system. Objective: To improve the general operating efficiency of the City's sanitary sewer system. Objective: To eliminate or reduce substantially the volume of external water entering the sanitary sewer system. Policies: Contingent upon the availability of funding, a comprehensive study to determine areas subject to high infiltration and appropriate actions to reduce or eliminate groundwater infiltration should be undertaken immediately. Repair pipe breaks immediately upon detection. Utilize closed circuit television for sewer line inspection in all areas, but concentrate on older lines and known trouble spots. Continuously maintain the City's sanitary sewer lift stations and plan to replace lift stations installed prior to 1950. Practice preventive maintenance procedures throughout the system, but concentrate on areas carrying near capacity flows and older sections of the system. Strict standards and inspections should be required for private sewer lines and connections to the public sanitary sewer system. Comprehensive Land Use Plan Community Facilities Element Page 8 E. Private On Site Disposal Systems Private on-site sewage disposal systems remain in use for approximately 150 residential lots in Edina. All existing private systems were installed prior to availability of the public sanitary sewer system. Currently, connection to the public sanitary sewer system is required for all residential and non- residential development. Of the residences that continue to utilize private systems, only seven do not have public service near-by. However, a substantial portion face a high cost method of connection to the public system. Private lift stations and very long connection lines will be required in many cases. The continued use of private disposal systems, even in relatively small numbers, represents a potential public health and safety problem. Malfunctioning systems can lead to the contamination of both the ground and surface water supplies of the City. It is important that this threat be removed throuah connection to the public sanitary sewer system of all residences currently utilizing on-site systems. Objective: Eliminate the use of private on-site sewage disposal systems before 1990. Policies: The public sanitary sewer system shouiu ue made available LU aii residences in the City . Current Edina ordinances requiring connection to the public system within two years of availability, or when the private system fails, will be enforced. The City should cooperate and assist homeowners seeking to connect to the public system in the most reasonable, cost efficient manner. III. Storm Water Drainage System Goal: It is the goal of the City of Edina to provide a storm water drainage system which is sufficient to prevent localized flooding, property damage, and pollution of ground and surface water supplies associated with excess storm water runoff from existing and anticipated land uses. NG MAJOR WATIPIS140 MODES POMOIMS AMA! -- MINOR WATERS8A001VOCS Comprehensive Land Use Plan Community Facilities Element Page 9 An effective system for holding and removing excess stormwater run- off increases in importance as development intensifies in urban areas. As Edina nears full development, developers will look to redevelopment, intensi- fication of existing developments, and the development of marginal areas for building sites. In order to avoid potential flooding and associated environ- mental damage that may result from increased stormwater run-off, the City must carefully consider the impact of all new development and redevelopment on the City stormwater drainage system. Edina's existing stormwater drainage system consists of approximately 70 ponds, natural drainageways, and 71.86 miles of storm sewer. Stormwater is channeled through Edina's storm sewer system to discharge points into the City's two major watersheds. Minnehaha Creek receives stormwater run-off from northern and eastern Edina, and the Nine Mile Creek drains the western and southern portions of the City. The existing ponding network major and minor watershed divisions and general directions of drainage are depicted on the storm drainage map included in this section. A. Floodplain and Protected Areas In order to assure adequate storm water storage, protect water quality, and reduce the rick of nrnmarty damage that may result from stormwater run- off, the City ordinances and other official controls to protect water courses, water bodies and stormwater storage areas. Fioodplains have been delineated for Nine Mile Creek and Minnehaha Creek based upon the 100 year frequencey occurence. Easements and dedications are tools used by the City to preserve and protect water bodies, ponds, and other stormwater holding and drainage areas. In conformance with standards established by the Federal Insurance Administration, Edina has developed a floodplain ordinance that is intended to protect watercourses up to the elevation of the 100 year frequency occurence. The City, in cooperation with Minnehaha and Nine Mile Creek Watershed Districts, regulates all uses within the 100 year floodplain areas to preserve the carrying capacity of creeks. The City seeks, through dedication and/or easement, to protect land upland of the creek beds as they run through the City. Most areas adjacent to the course way of the Nine Mile Creek as it flows through Edina are under direct City control with only minor areas yet to be acquired. However, most land adjacent to the course way of Minnehaha Creek remains privately held. The developed status of lands adjacent to Minnehaha Creek will make protection of these lands by the City difficult. Wetlands that comprise component parts of the stormwater retention and detention system and that exceed 2 1/2 acres in size are protected by DNR CITY OF EDINA hcillit)Li county minnesota 606 1100 FLOOD V/111 DENOTES FLOOD PLAIN AREA Comprehensive Land Use Plan Community Facilities Element Page 10 classification that comprise the City retention and detention system. Open space is protected surrounding these waterbodies to assure adequate storage capacity. B. Water Quality Storm water runoff is a primary source of pollution of waterbodies and water courses in the City and the region. Pollutants, including road salts, sediments, debris, inorganic and organic nutrients, increase as the amount of hard surface increases. In Edina the effects of pollutants carried by storm water runoff are most apparent on the City lakes and ponds receiving large amounts of runoff. Pollutants carried by storm water runoff produce waterbodies that are highly eutrophic. Where possible the City has acquired by easement or dedication buffer areas surrounding or adjacent to waterbodies and water courses to allow a filtering of stormwater before it enters the system. The reliance on a holding pond system that captures runoff and eventually drains into the creeks contributes to improved water quality in down stream waters. Although water quality in holding ponds is generally poor, the settling of pollutants during the retention period in holding areas improves the quality of water reaching Minnehaha and Nine Mile Creeks. Any improvement in the wa,..... H uality of the ponds that are a part of Edina's storm water system will be accomplished only by reducing the pollutants contained in runoff or by diverting storm water directly to the storm sewer system. Efforts to reduce pollutants should be made, but it should be recognized that the water quality in the City's ponds and lakes will not be significantly improved during the planning period. C. System Improvements and Expansion Edina's stormwater drainage system is substantially complete at this time. The challenge of the 1980's will be to insure the ability of the system to handle anticipated development in the City. The protection of adequate amounts of open space, and the protection of flood plain areas will be primary goals of the City stormwater management system. Objective: Prevent localized flooding and surface water pollution associated with excess storm water runoff. Policies: Developers should be encouraged to minimize hard surface coverage. CITY OF EDINA hennepin county minnesota IZOO. 00' 600 12 CO21UNICATION UTILITY OSSM MAJOR TELEPHONE EXCHANGE BOUNDARIES iliTURAL GAS AIAJOR NATURAL GAS TRANSMISSION ROUTE CITY OF EDINA benne* coity minnesota 600 POW `;517-f•._;_:;r:" WILSON SUB STATION ELECTRIC UTILITY rioreW, MAJOR TRANSMISSION UMES Comprehensive Land Use Plan Community Facilities Element Page II Natural stormwater drainage ways and temporary storm water holding areas should be preserved. Erodible slopes should be protected from development, especially those impacting the water quality of Minnehaha and Nine Mile Creek. Potential storm water consequences should be assessed for all development and redevelopment proposals. The comprehensive storm water management plan for the City should recognize ultimate land use according to the City's General Land Use Map. Land use within the 100 year flood elevation of Nine Mile Creek and Minnehaha Creek should be limited to uses that do not adversely alter the hydraulic efficiency of the creek. The City of Edina should cooperate with the Watershed Districts in efforts to reduce the introduction of pollutants into Minnehaha Creek and Nine Mile Creek resulting from surface water runoff. The City of Edina should cooperate with the Department of Natural Resources (DNR) in !tF -4 fernpts to pre+—+ quality of water in floodplain areas, siloreiands, and wecianas. Density bonuses should be given for developers who reduce the hard surface coverage in new developments or re-developments and preserve storm water retention and detention basins. IV. Park and Open Space System A. Classification of Parklands There are approximately 1,279 acres of parkland and open space in Edina. This constitutes approximately 11% of the land area of the City. Parkland and Open Space in Edina Use Acres Parkland 1150 Comprehensive Land Use Plan Community Facilities Element Page 12 Parkland and Open Space in Edina (Cont.) Use Acres Floodplain and Open Space 64 Plazas, Triangles, Circles 5 Storm Water Drainage Areas 60 TOTAL 1279 Parkland and open space in Edina is classified according to the facilities included in each park, the size of the park, and the intended purpose or use of each park. Five basic classifications categorize parklands. The first classification is the mini-park. The mini-park is characterized by a size of less than an acre and is designed to serve primarily the needs of preschool-age children, although it may provide facilities designed to serve the recreation needs of other age groups. There are 14 acres of parkland in this classification scattered throughout the City. The second classification of parkland is the neighborhood park . These parks are designed to serve primarily the needs of children six to fourteen years of age. Although Edina has no policy regarding the uniformity of facilities at such parks, tennis courts, softball diamonds, basketball and ice skating facilities are commonly provided. Neighborhood parks are frequently designed to take advantage of a scenic feature such as a woodland, ridge, waterbody, or watercourse. Nine Mile Creek and Minnehaha Creek serve as focuses for several neighborhood parks. Approximately 212 acres are included in neighborhood parks. A third classification of parkland in Edina is the community playfield. The community playfield is designed to provide facilities for diverse recreational activities for young people and adults, although a section is generally set aside for neighborhood children. Edina contains six community playfields totaling 190 acres ranging in size from 19 to 62 acres. These six parks are dispersed in order to maximize access to the population of the City. The fully developed nature of the City will not permit the acquisition of land for community playfields unless another land use is displaced. A fourth classification of parkland in Edina is the community park. The community park is usually a large park of more than 100 acres or a smaller park of unusual scenic interest and/or containing special community .facilities. OW co we deo' *COMMUNITY PARK * COMMUNITY PLAY FIELD * NEIGHBORHOOD PARK * MINI- PARK * SPECIAL PURPOSE PARK PARKLEIDS CITY OF EDINA lieffitepi canny mineseta * *0 Comprehensive Land Use Plan Community Facilities Element Page 13 Edina has developed two community parks. Lake Cornelia Park contains two community facilities: an olympic size swimming pool and the Edina Art Center. In addition, Lake Cornelia Park contains a bicycle and pedestrian trail around a portion of the lake and is a sanctuary for wildlife. The park is centrally located and provides facilities for specialized sports and more leisurely picnicking and family recreation. Braemar Park is a 500 acre community park providing facilities to serve a number of specialized sports. A nine and eighteen hole golf course, an archery range, a tennis court, a paddle court, and a gun range are provided at Braemar as well as the•-City skating arena and a complex of lighted soft- ball and baseball diamonds. The large size of this park also permitted the development of a wildflower sanctuary. The fifth parkland classification is the special purpose park. The special purpose park provides a single or specific form of recreation. Edina has three parks that may be classified as special purpose parks. Frank Tupa Park is a one acre park located adjacent to the Municipal Hall. Tupa Park houses the Edina Historical Center in the restored Grange Hall and is the location of the Cahill School, a restored one-room school house. Bredesen Park, also a special purpose facility, is only partially developed at this tir^ A between the Nine Mile Creek Watershed District and the City or taina wiii aevelop the park as a nature center. Current plans call for an unstaffed center. Arneson Acres is a 15.0 acres park that houses a green house and nursery and in the future will develop into scenic and passive open space. Along with the above noted parkland, Edina has jurisdiction over open space and other municipally owned property. The open space is generally in the form of flood plain along Nine Mile and Minnehaha Creeks or areas with steep and unbuildable slopes. These areas comprise 64 acres of land and have generally been left in their natural state. Other municipal property includes plazas, squares, or boulevard islands. Edina maintains five acres of these small landscaped areas. With the exception of the Edina Public Schools, no other governmental subdivisions own parkland and open space in Edina. No county, state, or federal parklands or open space are proposed in Edina. The Edina Public Schools own recreational facilities accessory to existing public school buildings. Comprehensive Land Use Plan Community Facilities Element Page 14 B. Acquisition of Park Land and Open Space Parkland in Edina is acquired principally by way of subdivision dedication. At the time land is subdivided, the developer dedicates a reasonable portion of land to the City for park purposes, or provides the City with a cash dedication in lieu of land. Cash dedications are placed in a special fund for the acquisition or development of parkland or open space. Open space is acquired in environmentally sensitive areas such as flood plains or areas with steep slopes. Areas with steep slopes are dedicated to the City through the subdivision dedication process, dedicated as unbuildable lots at the time of subdivision, through the fee simple acquisition of such land, or through a grant of conservation easements. Flood plain open space has been dedicated pursuant to the Floodplain Ordinance. In 1974, a bond issue referendum was approved for the purpose of acquiring parkland and open space in Edina. At that time, nine sites were proposed for acquisition. To date, six sites have been totally or partially acquired. It is anticipated that remaining sites will be acquired during the 1980's. C. Financing The purchase of park equipment and park development is accomplished through the capital improvement budget. The capital improvement budget is in the form of an $80,000 annual appropriation that is part of the annual City budget. Annual park maintenance expenditures are included as part of the Park and Recreation Department budget. Both the annual budget and the capital improvement budget are items included in the annual municipal budget. Funds for the improvement and maintenance of parks will continue to be a part of the annual municipal budget. D. Recreation Programs Edina offers a wide range of recreation programs for youth, adult, and senior citizen participants. These programs include both active and passive, and structured and unstructured activities: CITY OF EDINA hennepin county minnesota god so' coo' moo' PARK & OPEN SPACE ACQUISITION elOSITES ACQUIRED ®SITES PROPOSED FOR ACQUISITION Comprehensive Land Use Plan Community Facilities Element Page 15 Recreation Programs Adult Arts and Crafts Touch Football Softball Basketball Volleyball CrossCountry Skiing Downhill Skiing Social Dance Classes Fencing Firearm Safety Golf Instruction Karate Platform Tennis Swim Instruction Skating Instruction Tennis Instruction Tennis Tournaments Frisbee Golf Gun Range Ice Arena Skating Recreational Skating Swimming Pool Historical Society Bocci Ball Courts Senior Citizens Edina Senior Citizens Club Pool Tournaments Open Pool Play Swimnastics Walking Group Watercolor Lessons Shuffleboard Bowling Edina Singin Swingin Seniors Golf - in cooperation with Richfield and Bloomington Youth Arts and Crafts Bandy Baseball Softball Basketball Creative Dramatics Cross Country Skiing Downhill Skiing Flag Football Hockey Soccer Team Tennis Volleyball Fencing Firearm Safety Football Golf Instruction Gymnastics Karate Platform Tennis Puppet Shows Swim Instruction Skating Instruction T-Ball Tennis Instruction Tennis Tournaments Theater Instruction Playgrounds Swimming Pool Ice Arena Skating Recreational Skating Gun Range Grange Hall Cahill School Bocci Ball Courts Comprehensive Land Use Plan Community Facilities Element Page 16 Many major athletic programs are administered by athletic associations composed of volunteers from the community. City staff provides direction, management, coordination, secretarial services, and continuity for these associations. This system has resulted in maximum participation in major programs by residents and has reduced the need for additional City staff. E. Goals, Objectives, and Policies Goal: It is the goal of the City of Edina to provide a parkland and open space system that offers a multiplicity of recreational opportunities for the diverse needs of the population, preserves important land forms and natural resources, and provides adequate recreational and open space lands in close proximity to all residents of the City. Objective: Provide an adequate amount of parkland and open space in close proximity to all residents. Policies: Continue to pursue the acquisition of sites authorized by the 1975 bond issue referendum. In conjunction with the subdivision of uj rty, require tho of lands that would beneficially expand existing parklands, provide parklands of at least six acres in area (or resulting in six areas when combined wtih other public lands), or protect places of unique historical value. In conjunction with the subdivision of property, require the dedication of lands to protect and preserve important natural or environmentally sensitive areas including floodplain lands, lands riparian to watercourses and naturally occurring lakes, ponds, wetlands, storm water holding areas, and steep slopes. Cash dedications in lieu of land dedications made in conjunction with subdivisions should be used when appropriate to acquire parkland and open space. Discourage the acquisition of additional mini-parks due to cost/ benefit problems. Objective: Maintain the level of service and diversity of recreational programs in Edina. Policies: Continue to utilize private athletic associations for the administration Comprehensive Land Use Plan Community Facilities Element Page 17 of major athletic programs. Provide staff assistance to athletic associations for program coordination, direction and management. Provide comprehensive, year-round recreation programs for Edina residents. All structured recreation programs should be totally self-sustaining and supported by use fees. Edina residents should receive highest priorty for participation in recreation programs. Non-residents able to particpate in recreation programs should pay higher use fees as compared to resident participants. Provide additional and/or expanded recreation programs for middle age and senior citizen participants. Periodically inventory resident participation and modify recreation programs appropriately. Continue to operate neighborhood playground programs for children, but phase out supervi-,i^v, f,r,r such prod-^^n f- --;'--)r.'7" creative rather than programmed play. Maintain an appropriate balance between active and passive recreational programs. Encourage volunteer participation to assist in the supervision of recreation programs. Coordinate activities with the Edina Public Schools to avoid duplication of recreation programs. Do not initiate new recreation programs which are being adequately provided by the Edina Public Schools or quasi-public and private organizations. Continue to operate and staff recreation programs for senior citizens at the senior's center. Objective: Provide active and passive recreation facilities within the park and open space system which respond to the diverse needs of the population. Comprehensive Land Use Plan Community Facilities Element Page 18 Policies: Use cash subdivision dedications principally for developing new recreation facilities. To the maximum extent, utilize cash subdivision dedications in parks located in the same quadrant of the City as the subdivision. During the plan period, pursue the initial development of Malibu Park as a community playfield and Southeast Edina Park as a neighborhood park, Bredesen Park as a nature center and Arneson Acres as scenic and passive open space area. Continue to cooperate with the Edina Public Schools whereby school facilities are utilized for certain City sponsored indoor recreation programs and City facilities are utilized for certain school sponsored outdoor programs. During the plan period, upgrade all parks to the final develop- ment phase including pathways, landscaping and other amenities. Continue to conduct an efficient and high quality maintenance program for all parklands, open space, and recreational facilities. COMPREHENSIVE LAND USE PLAN IMPLEMENTATION ELEMENT Introduction The purpose of the Implementation Element is to provide the framework for achieving the goals and objectives set forth in the Comprehensive Plan. In many cases the policies of the Plan are self implementing and require no further explanation. However, in other instances it is important that official controls and programs be specified in order to carry out the Plan. The Implementation Element should be treated as a tool for management of anticipated change during the 1980's. Effective management requires that the Plan be treated as a living document, subject to modification or revision during the life of the Plan. The two major components of the Implementation Element are Land Use and Capital Improvements. The Land Use section includes general land use, environmental protection, and housing. The Capital Improvements section details Edina's five year plan for transportation improvements, sewer and water facilities, parks and municipal buildings. I. Implementation - Land Use and Environmental Protection Element The implementation section for the Land Use Element includes anticipated official controls, revisions to existing controls, and other methods proposed to effectuate the goals, objectives and policies so stated in the Land Use Element. Many of these implementation directions have been described in the policy statements of the Land Use Element. However, a more detailed descrip- tion follows. A. Subdivision and Zoning Ordinances Edina's Subdivision and Zoning Ordinance will be revised to respond to two basic objectives. First, these ordinances must allow for greater flexibility in order that innovative design approaches and mixed used developments are possible and encouraged. Second, ordinances should reduce, where possible, processing times for land use and re-use proposals. Specifically, the following revisions to the Subdivision Ordinance are proposed: a . Simple lot divisions whereby no new lots are created and existing buildings and lots comply with the Zoning Ordinance will be sub- ject to Staff approval and will not require Planning Commission and City Council action. b. Standards concerning street widths, right of way dimensions, grades, intersection configurations, sidewalks, public improve- ments and protective easements will be included Comprehensive Land Use Plan Implementation Element Page 2 c. Standards concerning financing of public improvements and dedi- cations of land and cash for parkland and open space purposes will be clarified. The Zoning Ordinance will be re-codified and revised in the following areas pursuant to the implementation program: a. A secondary single family zone will be established that contains reduced lot area and setback requirements based on neighborhood characteristics. b. The Planned Residential District Section will be revised to include performance criteria for determining multiple residential densities. c. The Multiple Residential District will be revised to eliminate unit size minimums. d. A new "Planned Office District" Section will be added. e. A new "Planned Unit District" will be added to accomodate mixed use developments. f. Commercial, Office and Industrial Sections will be reviewed to ,,,e-t; for revisions to floor area ratio standards and parking requirements. 11. Environmental Protection The protection, management and enhancement of Edina's environment require the joint effort and cooperation of many jurisdictions and agencies. For example, although Edina has jurisdiction over floodplains, such controls would be of limited value unless water resources were managed on a total watershed basis as is done by the Watershed District. Similarly, air quality and noise control are most appropriately addressed by agencies having wider jurisdiction than Edina. Most environmental ordinances and official controls deemed necessary by Edina have been previously adopted. In some cases, minor revisions will be undertaken to accomodate the policies of the Environmental Protection Element. A. Floodplain Management Ordinance Edina's floodplain ordinance and floodplain map were very recently amended to reflect the findings and requirements of a Flood Insurance Study for Edina which was conducted by the Federal Insurance Agency. As with the prior flood- plain ordinance, the updated ordinance is more restrictive than Federal or State mandated management standards. This ordinance also allows permits for flood- plain encroachment to be issued administratively rather than by Planning Corn- mission and Council action, thus expediting the process. Edina has and will continue to rely on the expertise of the Nine Mile Creek and Minnehaha Creek Comprehensive Land Use Plan Implementation Element Page 3 Watershed Districts as appropriate in reviewing matters relating to floodplain management. Edina believes that an overall strategy, as coordinated by the Watershed Districts is proper and desirable for effective floodplain management. B. Erosion Control Ordinance Edina has had an erosion control ordinance for several years. This ordin- ance applies primarily to large scale earth moving operations in the City. In most cases, erosion control is addressed by the Nine Mile Creek Watershed Dis- trict which requires land alteration permits for all work involving more than 100 cubic yar'ds. Edina will continue to cooperate with the District in this matter and will not issue building permits unless land alteration permits have previously been approved by the Watershed District. Edina's erosion control ordinance will be modified to allow permits to be issued administratively in order to reduce processing time. C. Subdivision Ordinance In many cases, Edina acquires sensitive lands by way of its subdivision ordinance. Lands abutting water courses and natw-aIIy occuring lake:: and ponds must be dedicated to the City or an easement granted insuring their protection. By way of subdivision dedication requirements (i.e. parkland dedication), woodlands, steep slopes, wetlands and other sensitive areas can be acquired. D. Shoreland Management Ordinance Edina has not as yet adopted a shoreland management ordinance. Although such an ordinance would be of limited value, Edina will adopt such an ordinance when appropriate as mandated by State Statute. E. Conservation Restrictions Pursuant to recent legislation (Minnesota Statute 84.64), Edina will require the grant of conservation restrictions to protect steep slopes, wetlands and other sensitive resources in conjunction with development. F. Zoning Ordinance Edina will amend its Zoning Ordinance by revising the Planned Residen- tial District section to include performance based criteria as a means of comput- ing allowed density. Criteria will include wetland preservation, steep slope protection and other sensitive physical features. Comprehensive Land Use Plan Implementation Element Page 4 G. Mining and Excavation Ordinance Sand and gravel mining operations are an important interim land use in southeast Edina. These operations are regulated to ensure proper grades for future development. Revisions to the mining and excavation ordinance are not anticipated. H. Tree Cutting Ordinance Like the erosion control ordinance, the tree cutting ordinance is used to regulate and control tree removal on large scale property or unusually sensitive lands. Enforcement of this ordinance on individual lots or smaller projects is not now practiced and is not proposed. Fortunately, developers appreciate the economic value of trees and usually undertake reasonable efforts to preserve these resources. I. Shade Tree Disease Control Ordinance The urban forest is one of the more valuable resources of Edina. Continued control of A.:t^n elm disease and 07k. !r ins,r?-ative and re- quires a joint effort of Edina property owners, and other jurisdictions. The existing shade tree disease control ordinance adequately establishes an identification, removal and disposal procedure for diseased trees on both public and private property. This ordinance will continue to provide the primary control mechanism. Edina will continue to undertake vigorous san- itation and control programs on public property and boulevards. It will continue to maintain a nursery for reforestation of public lands. However, present policy recognizes that reforestation of boulevards continues to be the primary responsibility of the abutting property owner. Edina will assist in species selection and tree placement. J. Heritage Preservation The Heritage Preservation District Section of the Zoning Ordinance provides a suitable means of preserving the interior and or the exterior of significant historical, cultural or architectural buildings or areas. The rezoning of such resources to HPD will be pursued .in accordance with recom- mendations of the Historic Building Survey of Edina, Minnesota. In addition, the nomination of qualifying sites to the National Register of Historic Places will be pursued. K. Visual Environment Numerous controls are, of course, provided to preserve and enhance Edina's visual environment. Two such controls deserve mention: The sign ordinance and landscaping requirements. Edina will continue to enforce its Comprehensive Land Use Plan Implementation Element Page 5 sign ordinance to regulate the size, number and design of signage. Past enforcement has led to aesthetically pleasing signage in all areas of the City. This ordinance should be reviewed periodically to respond to changes in design objectives. Landscaping requirements contained in the Zoning Ordinance will con- tinue to be enforced. A future task will be the establishment of standards for the review of landscape plans. At present, written standards regarding size class, species selection and quality are not provided. L. Air Quality and Noise Control Edina is not proposing new official controls concerning air quality and noise. These controls are beyond local expertise and available resources. These problems are best addressed by other agencies having metropolitan or statewide jurisdiction. Edina will, however, consider air quality and noise impacts in its review of development proposals. The provision of screening and other attenuation devices will be considered and encouraged. In a-l'+'on, Ed n- ooperate with our agencies undertaking studies and surveys within the City. Edina has cooperated with the P.C.A. in its study of air quality in the Southdale area. Also, the City has cooperated with the P.C.A. in enforcement of noise standards. M. Solar Access The protection of solar access is obviously a relatively new planning and legal concept. Official controls and strategies can include subdivision orientation and setback standards to maximize use of solar energy as well as variances from traditional zoning requirements to allow for (or prevent the obstruction of) solar access. Unfortunately, Edina's development occured during the "energy abundant" years without regard to optimum dwelling orientations or setback considerations. Fortunately though, Edina's develop- ment with relatively large lot subdivisions has at least reduced building-building obstructions of solar access. However, rolling topography and a mature urban forest frequently limit solar access. At Edina's development stage, it would not be prudent to adopt sub- division design standards to promote and protect solar access. The small amount of vacant land would make such an undertaking of little value. How- ever, Edina will consider, on a case by case basis, variances to height and setback requirements to allow use of solar energy systems. Also, density bonuses will be considered for multiple residential and non-residential uses utilizing solar energy systems. Comprehensive Land Use Plan Implementation Element Page 6 Summary Edina believes that adequate official controls are adopted and in place relative to environmental protection. Significant new ordinances such as an environmental site planning ordinance or an environmental overlay district ordinance are not deemed necessary or appropriate at this time and thus are not proposed. Revisions to existing environmental ordinances are proposed in some cases. Edina will continue to cooperate with jurisdictions having control over certain environmental features including the Watershed Districts, the Minnesota Pollution Control Agency, and the Minnesota Department of Natural Resources. The duplication by Edina of controls currently provided by these agencies (e.g. air quality and noise control) is not proposed at this time. III. Housing Action Plan The housing action plan deals with the mechanical process of implementing the policies of housing chapter. The housing action plan is divided into three principal sections: Market rate housing and the maintenance and rehabilitation of the existing housing stock; modest cost market rate housing; and assisted rental housing. Each section details loco: t:.ct contribute to the realization of the City's housing goals. Actions specified rely primarily on existing federal, state and local programs which are subject to modification. Program changes or changes in local circumstance may require adjustment of local goals. A. Market Rate Housing and the Maintenance and Rehabilitation of the Existing Housing Stock. 1. New Market Rate Housing OBJECTIVE: Offer maximum flexibility for development and redevelopment without compromising the character of existing neighborhoods. The City controls the development of new market rate housing through its subdivision ordinance, its zoning ordinance and other official controls and policies. The existing control mechanism has performed well and continues to work well for most developments. However, the built up nature of the City, the difficult physical characteristics of land remaining to be developed and the impor- tance of energy conservation and the need to implement alternate energy production systems requires a flexible approach to new development. Actions for new development emphasize the flex- ibility of control necessary to address changing housing needs. As the City approaches full development, in-fill and redev- elopment will occur in Edina's existing neighborhoods. The char- acter and stability of the City's neighborhoods depends on the standards imposed for each area. Minimum lot sizes, setbacks and the proximity and relationship of differing land uses will Comprehensive Land Use Plan Implementation Element Page 7 become increasingly important during the 1980's. It is important that the City anticipate and plan for change within existing neigh- borhoods. ACTIONS: The decade of the 80's will see the emphasis change from new development to redevelopment and more intense use of existing developments. Edina should prepare for change by assessing the potential for redevelopment or more intense development, and should prepare plans as appropriate. Currently, Edina's Zoning Ordinance contains a single set of standards for each residential district that applies throughout the City. Existing standards work well in the City's newer neighbor- hoods, but they present problems in older neighborhoods which were developed under less restrictive standards. In order to assure that redevelopment will occur in a manner sympathetic to prevailing neighborhood standards, uniform guidelines for redevelop- ment should be developed for sub-areas of the City. The development of vacant land should be based on the City's general land use plan. (See Land Use Chapter of Comprehensive Land Use Plan). 2. Maintenance and Rehabilitation The City should emphasize the controls designed to assure the stability and appearance of its residential neighborhoods. The City should continue to enforce and if warranted, strengthen the following regulations: 1. Off street parking requirements 2. Housing Maintenance Code 3. Control of home occupations 4. Sign Ordinance 5. Nuisance Ordinance 6. Police and Fire protection The City should continue to utilize federal and state programs designed to improve the quality of the existing housing stock. Currently, Minnesota Housing Finance Agency (MHFA) grants and loans, and Community Development Block Grant (CDBG) grants are available to low income homeowners in Edina. The City's Staff also advises and refers homeowners to information sources regarding home improvements. The following services and programs should be available to City homeowners. Comprehensive Land Use Plan Implementation Element Page 8 Public, Private (state, private lenders) Public Low-moderate (federal, city) income Program/ Service Education MHFA Home Improvement Grants MHFA Home Improvement Loan Program CDGB Grants Tax Credits Results Information relating to home improvements, energy conservation, tax credits, etc. Maintenance, rehabilitation, and energy conservation improvements . Grants for rehabilitation and energy improvements. Responsible Benefit Sector Group Public, Private All Income Public Low Income (state, city) Low-moderate Low interest loans for income above improvements. Public All Incomes incentive to improve energy (federal, state) efficiency. To the extent possible all City homeowners should have equal access to City programs. Some rehabilitation efforts may require a concen- tration of efforts in specific neighborhoods. B. Modest Cost Housing: OBJECTIVE: Promote a diversity of size and price within the City's housing stock. Actions implemented by the City to promote the construction of modest cost housing can only succeed if developers are willing to con- struct such housing and financing at an affordable cost is available to potential purchasers. Even if land and financing market conditions improve dramatically, it is unlikely that the Metropolitan Council's goal of 576 units of modest cost housing for Edina is achievable. Actions advocated by this plan are intended to encourage developers to consider including modest cost housing units in all residential districts. Multiple family developments should, however, offer the most potential. ACTIONS: The City should cooperate with developers who desire to develop housing utilize assisted mortgage financing. (HUD's Section 235, a Comprehensive Land Use Plan Implementation Element Page 9 program to reduce the interest a low or moderate income buyer pays on a mortgage, is an example of an existing program.) Unit size minimums should be eliminated from the multi-family districts of the Zoning Ordinance. (Smaller unit sizes will reduce the cost per unit while providing the developer with a similar return.) Allowed densities for multi-family developments should be calculated on a performance based formula. Density bonuses for moderately priced units should be considered. The City should advocate modification of existing federal and state programs for the creation of new funding programs designed specifically for suburban application. The City should consider the use of its bonding authority to provide mortgage financing for housing if the private market fails to supply needed financing. C. Assisted Rental Housing: OBJECTIVE: Encourage the provision of new assisted housing oppor- tunities according to the goals of the Housing Policy Plan. Assisted housing provides a decent, safe and sanitary housing unit for families and individuals at a cost based on family income. In Edina, assisted housing can be most economically provided in two ways. The first is to assist (subsidize) families in the rental of privately owned market rate units. This is achieved through a subsidy, paid to the unit's owner; for rent in excess of a specified portion of the family's income. Edina, with over 3,500 rental units, could effectively utilize a rent subsidy pro- gram. The second approach to providing assisted housing is through unit subsidies for new construction. This approach provides a subsidy directly to the builder provided the units are rented to low and moderate income families, the elderly or the handicapped. ACTIONS: Advocate the development of federal and state housing development programs that are designed for suburban conditions. Currently available funding programs do not adequately allow for high cost areas. Amend the Planned Residential District (PRS) of the City's Zoning Ordinance to include incentives for providing assisted units as .a portion of any new development. Incentives, especially density bonuses, provide the most economical approach to providing new assisted units. The City should consider the use of tax exempt bonds for project mortgage financing if conventional financing mechanisms are unavailable. Comprehensive Land Use Plan Implementation Element Page 10 The City should continue to utilize Community Development Block Grant (CDBG) entitlement grants to provide incentives to developers to construct assisted housing. The City should consider the creation of tax increment financing districts as a means to acquire and make land available for assisted housing. Redevelopment plans for community and neighborhood commercial areas with adequate levels of public transportation should place a high priority on sites for assisted housing, especially elderly housing. IV. Public Facilities and Capital Improvements A. The Capital Improvements Program (CIP) is a plan that sets forth anticipated capital needs and expenditures for a given period of time. Its function is to be the link between the Comprehensive Plan and the fiscal plan for Edina. The CIP anticipates the timing of improvements and aids in the budgetary process of the City. It also provides valuable information to citizens and helps to coordinate efforts of the various departments within the City. Methods of financing physical development contained in Edina's CIP vary according to the type of facility planned. A brief description of methods ,ot financing capital improvements is provided below: 1. Revenues from the Operating Budget This pay as you go method of financing improvements provides a major source of revenue in Edina. It is the primary source of financing municipal buildings and park improvements. Each year a portion of Edina's operating budget is set aside and accumulated to pay for planned improvements. 2. Reserve Funds Limited use of reserve fund financing, where funds are accum- ulated in advance for future capital expenditures, is used in Edina. Reserve funds are used to provide improvements to the City's water system. 3. Special Assessments Special assessments are the principal financing tool for public works projects in the City, especially for improvements required by new development. The use of the special assessment method allows public works improvements to be financed by properties that directly benefit from the improvements. In some cases where extensive public works replacement projects are undertaken as a part of neighborhood revitalization, other revenues will be used to supplement special assessments. Comprehensive Land Use Plan Implementation Element Page 11 4. Tax Increment Financing Edina has used Tax Increment Financing to provide a variety of public improvements in conjunction with efforts to stabilize and revitalize selected commercial areas. (Tax Increment Financing has also been used to provide incentives to facilitate the construction of assisted housing.) Tax Increment Financing provides capital resources, through the sale of Tax Increment Bonds, that are re- paid by the increased taxes generated by the assisted redevelopment. Currently, two tax increment districts have been established in Edina: the 50th and France Commercial area; and the Southeast Edina area. The Grandview commercial-industrial district and a limited number of housing districts are possibilities for Tax Increment Financing in the 1980's. 5. State and Federal Grants Edina currently receives or is eligible to receive grant funds from a variety of state and federal programs. Federal General Revenue Sharing and the Local State-Aids program are the principal sources of outside income available to the City. Community Develop- ment Block Grant funds and other entitlement and categorical grant programs may also be used by Edina in the 1980's. Capital improve- ments funded in the past and possible for the 1980's include streets, sidewalks, water and sewer facilities, parks and playgrounds and sites of historical significance. CITY OF EDINA CAPITAL IMPROVEMENTS PROGRAM 1981 - 1985 YEARS LOCATION PROJECT DESCRIPTION ESTIMATED COST TRANSPORTATION SYSTEM Bridge over Minnehaha $345,000 Creek including approaches New Bituminous surface, $175,000 curb and gutter, and con- crete sidewalk Bituminous surface, curb, $100,000 gutter, and sidewalk Minn, Northfield & Southern $7-50_000 Railroad (M,N&S) bridge over Eden Ave. including local share of approaches $35G, 000 1981 West 44th St. from Brookside Ave. to Highway 100 1981 West 69th St. from France Ave. to Xerxes Ave. 1981 Miscellaneous improve- ments for new subdivi- sion 1981 Eden Ave. from Arcadia Ave. to Link Rd. 1981 Miscellaneous sidewalk 1981 W. 50th St. and Wood- dale Ave. 1982 Dewey Hill Rd. from Cahill Rd. to Braemar Golf Course 1982 W. 70th St. and Metro Blvd. 1982 Valley View Rd. from Mark Terr. to County Rd. 18 1982 Miscellaneous subdivision improvements 1982 Miscellaneous sidewalk improvements 1983 Blake Rd. from Inter- lachen Blvd. to County Rd. 158 Concrete sidewalk along selected streets Traffic signal Bituminuous surface, curb, gutter and sidewalk Traffic signal Storm Sewer, Bituminous surface, curb, gutter and sidewalk Bituminous surface, curb and gutter Concrete sidewalk along selected streets Bituminous surface, curb, gutter and sidewalk $150,000 $ 45,000 $265,000 $ 50,000 $165,000 $100,000 $150,000 $480,000 City of Edina Capital Improvements Program 1981-1985 Page 2 YEARS 1983 1983 1984 1984 1984 1984 1985 1985 1980-85 ESTIMATED LOCATION PROJECT DESCRIPTION COST Miscellaneous sidewalk Concrete sidewalk along $150,000 selected streets Miscellaneous subdivision Bituminous surface, curb $100,000 improvements and gutter Vernon Ave. from County Bridge over Nine Mile Creek $250,000 Rd. 158 west 300 feet including approaches Hansen Rd. from Benton Bituminous surface, curb, $350,000 Ave. to Vernon Ave. gutter and concrete sidewalk Miscellaneous sidewalk Concrete sidewalk along $150,000 selected streets Miscellaneous subdivision Bituminous surface, curb $100, 000 improvements and gutter Vernon Ave. from County Bituminous surface, curb $320,000 Rd. 158 to Dominick Inter- and gutter change. Miscellaneous sidewalk Concrete sidewalk along $150,000 selected streets Miscellaneous street Bituminous overlay on $500,000 overlays selected streets SANITARY SEWER SYSTEM 1980-85 Various locations Construction of sanitary $500,000 sewer' laterals for developing subdivisions 1980-85 Various locations System improvements including $500, 000 lift station renovations, line repair and replacement WATER SYSTEM 1980-85 1980-85 Various locations Various locations Construction of watermain lat- $500,000 erals for developing subdivi- sion System improvements includ- $500,000 ing treatment plants, pump stations and watermain reno- vation City of Edina Capital Improvements Program 1981-1985 Page 3 YEARS LOCATION PROJECT DESCRIPTION EST !MATED COST STORMWATER DRAINAGE SYSTEM 1980-85 Various locations Storm sewer construction $250,000 for developing subdivisions 1980-85 S.E. Edina between France and York Avenues 1980-85 Adams Hill Area (75th St. & Xerxes Ave.) PARK AND OPEN SPACE SYSTEM Construction of stormwater retention and detection ponds and stormwater piping Stormwater lift station and forcemain $600,000 $250,000 1980-85 Bredesen Park Vernon and Olinger south to CASH 62 1980-85 Malibu Park near Malibu Dr., Lincoln Dr. and 7th St. 1980-85 Arneson Acres, Braemar, Lake Cornelia School, 44th St., Garden, High- lands, Lewis, Pamela and Walnut Ridge Parks MUNICIPAL BUILDINGS 1980-85 Braemar Park 1980-85 1980-85 1980-85 Braemar Park Braemar Park Public Works Building (Eden Ave. & Brook-- side Ave.) Park development in cooper- $1,200,000 ation with Nine Mile Creek ($300,000 local Watershed District share) Park development $200,000 Urban Park and Playground $400,000 Development Program which includes development and improvement of listed parks Renovation of Braemar Arena $200,000 and Pavillion Construction of Golf Main- $100,000 tenance Building Construction of sewer and $ 75,000 water lines for clubhouse Construction and renovation $300,000 of public works building