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Otsego Township Community Facilities Analysis August 1990prepared by F orthwest associated Consultants, inc. Northwest Associated Consultants, Inc. U R B A N PLANNING • DESIGN • MARKET R E S E A R C H 6 August 1990 Otsego Building Committee c/o Otsego Town Hall 13474 95th Street NE Elk River, MN 55301 RE: Otsego - Community FILE NO: 176.08 - 90.18 Gentlemen: Facilities Study TYi_is letter transmits a copy of the Otsego Community Facilities Study which has been pursued at the direction of the Town Board and with guidance provided by your Committee. The report identifies existing and possible service., activities, projects their building and site needs, and finally analyzes possible locations of such activities within the community. This report should be considered a work document, providing data from which the community can resolve the issues which it confronts as to the services required and their appropriate location. Very truly yours, NORTHWEST ASSOCIATED l� David R.�� Presidexit icht," AICP cc: Elaine Beatty Don Meinhardt Larry Koshak William Radzwill TS, INC. Robert Kirmis Designer 4601 Excelsior Blvd. • Suite 410 •Minneapolis, MN 55416 • (612) 925�9420 •Fax 925-2721 TABLE OF CONTENTS Introduction ........................................ 1 Public Service Delivery ............................. 3 Administration ................................. 5 Public Works ................................... 8 Library........................................ 9 Fire........................................... 12 Police......................................... 15 LocationalConcepts ................................. 21 Unified Location 23 Dispersed Location 24 Site Selection Criteria ............................. 27 Accessibility/.Location 30 Compatibility/Impact 30 Physical 0 0 ....... 6 a ............................ 33 Social/Environmental 34 Cost........................................... 35 SiteSearch Areas ................................... 37 Comprehensive Plan 39 Area#1........................................ 46 Area#2........................................ 47 Area#3........................................ 48 Area#4........................................ 49 Area#5........................................ 51 Area#6........................................ 52 Area#7........................................ 53 Area#8........................................ 55 Town Hall Analysis .................................. 57 Site Plan Evaluation ........................... 70 INTRODUCTION The issue of outdated or inadequate Town Hall facilities has been a long standing issue within Otsego. Prior to this year, only Limited study or sporadic effort has been directed toward addressing not only Town Hall location and building needs issues, but other public service facilities as well (i.e., fire station, police station, library etc.). With continuing growth of the community, however, the provision and accommodation of public services is no longer an issue which can be ignored. The community has in fact recognized this situation and directions to address the matter have been initiated. As such, this report has been prepared as an initial response to these present and future public facility concerns. The purpose of this report is therefore multi -fold. The first objective and component simply defines existing and future community services, determines their degree of need, and offers generalized space, location, and building recommendations for each service type. The second objective defines general locational concept alternatives and makes recommendation on their appropriateness to the Town of Otsego. The third objective and component provides a set of criteria from which potential public service sites may be judged and evaluated on a more specific scale. The fourth objective and component involves applying the locational recommendations in a general sense and designating site search areas within the Town which may be considered suitable for a particular public use. The final component of this document offers a detailed site plan analysis of the proposed new Town Hall facility located north of County Road 39 and east of Nashua Avenue. This is founded to a significant degree on the directions anticipated in the updated Comprehensive Plan which is currently also underway. This report does not endorse specific sites nor develop architectural plans for Town facilities. The report does, however, establish a general framework from which more specific elements of a particular public facility may be developed. PUBLIC SERVICE DELIVERY Administration: Existing Conditions. 0use go's existing administrative facilities are located north of County Road 39 (95th Street) and east of Nashua Avenue and lie upon the original Town site. As the "nerve center" of community government, the Town Hall houses all town administrative and meeting functions. The Town Hall site which measures 3.2 acres in size also accommodates the public works facilities of the Town. The property is zoned R-2 and is also located within the Wild and Scenic designation applied to the Mississippi River which lies some 450 feet to the north. The Town Hall itself occupies a former school house and has become inadequate due to its limited seating capacity, age and basic functional design. While the existing Town Hall location does appear adequate via acceptable visibility, access, and contextual compatibility, some concern exists in regard to the Town Hall's adjacent public works facility. Specific concern relates to the appropriateness of an industrial type use within a relatively low intensity use area. This issue will be discussed in greater detail in the latter section of this report. Determining Need. The first step in evaluating the Town's existing Town Hall is to recognize its structural defects and operational inadequacies. By noting problems within the existing facility, measures may be taken to avoid similar concerns with a new facility. The Town has cited a lack of general meeting space, inadequate and insufficient office arrangements, and physical building condition deficiencies in justifying its need for a new Town Hall facility. The present facility is basically one, open room which houses both administration and meeting functions which commonly are in conflict. Consequently, the Town has initiated a planning process which proposes to construct a new facility, the location of which yet needs to be determined. Space Requirements. A second step is to undertake a study of future space requirements. While it is obvious the existing hall has a limited capacity, a space determination must be made for the next ten or twenty years. In studying space needs, future population growth and the resulting demand for additional Town services must be determined. A survey of space needs should include discussions with facility personnel to determine space needs for employee's equipment and storage for the next twenty year period. Another item to be identified involves whether a provision is to be made for other agencies to locate within the Town Hall. For example, the Town Hall also may function as a community meeting place and may require an ability to accommodate larger groups of people than would normally attend Town Board meetings. Because a E new building may have to serve for over 50 years, space needs should not be underestimated for future expansion, and the new building, as well as site design, must make accommodations for such concerns. Initial discussions with Town staff have revealed that space within a new Town Hall must be provided for a minimum of six employees (Town Clerk, Assistant Clerk, Assessor, Deputy Sheriff, Secretary and a Building Inspector). Additional needs include a conference room seating 10-12, a two work station public counter space, a storage room for supplies, duplicating equipment and other materials, a lunch room area, and employee toilets. Needs for the Town Board Chambers, based on meeting sizes and comparable rooms in other Town and City Halls should provide comfortable seating for at least 50-100 persons. The following is a generalized listing of present preferred square footage needs within the Town Hall: Need Town Board/Multi-Purpose Room (1,500 square feet exclusive to Board chambers) Town Clerk Building Inspector (drafting guest seating) Assistant Clerk Assessor Receptionist/Station Secretarial Station Deputy Sheriff Interview Office Conference Room Public Counter (2 Work Stations) Files Storage/Machines/Supply Kitchen Coats Toilets (Handicapped Accessible) Mechanical Space table , room APPROXIMATE NET SQUARE FOOTAGE NEEDS APPROXIMATE GROSS SQUARE FOOTAGE NEEDS (NET SQUARE FEET / .9) Net Sauare Feet 3,300 225 550 480 50 280 660 7,655 8,505 SOURCE: Interviews with Town Staff Interview with Larry Stowe, Boarman Associates Municipal Facilities Plan, Mendota Heights, MN, Midwest Planning, 1975 While specific long term space needs are likely reflective of Town growth, the structure itself should be configured in such a way which may accommodate future expansion. Location. Typically, administrative facilities are situated on the edge of a City's or Town's retail shopping area. Such a location stems from a desire to serve all community citizens as conveniently as possible at what is the typical focal and activity center of a community. In most older established freestanding communities, a CBD location is commonly the geographic center of the jurisdiction. This centralized commercial feature and strong focal point does not, however, exist within Otsego. As a result, the location factor must be given special attention, which is addressed in subsequent sections of this report. Site and Building. The building itself should be planned internally and stress proper functional relationships and convenience. The facility should be designed in a manner which reflects the essence of the Town and should not attempt to be monumental. Town Officials should strive for excellence in architectural design and site planning as the Town Hall itself shall exude an identifiable Town image. To enhance the facility, the Town Hall may be combined with a park and include extensive landscaping. Again, every effort possible should be made to exhibit a positive community identity. A determination of appropriate site size may be construed based upon anticipated building area. Assuming a ground level plan, a minimum site size of from 2.4 to 3.7 acres would be required to accommodate the Otsego Town Hall needs. Building Size (6,930 NSF / .9) 50% Building Expansion Parking - 100 spaces X 350 square feet (one space for each 3 seats) Green Area (35 to 70% of site) MINIMUM SITE AREA REQUIRED 8505 square feet (gross) 4,250 square feet 35,000 square feet 55,715 to 111,430 square feet ------------------- 103,470 to 159,185 square feet (2.4 to 3.7 acres) 7 Public Works: Existing Conditions. The Town public works facility is located adjacent to Otsego's Town Hall north of County Road 39 (95th Street) and east of Nashua Avenue. While existing space allotments may be considered adequate, a genuine concern exists in regard to the facility's outdoor storage needs, noise generated by equipment, hours of activity, and consequent compatibility with adjacent residences. Determining Need. The Town public works garage has recently undergone a facility expansion. As such, no space deficiencies are recognized. This, however, does not negate a general concern regarding the facility's impact upon adjacent single family homes. As such, the Town should recognize potential relocation opportunities, and seek facility relocation where an industrial type use may be considered more appropriate. Space Requirements. Public works garages and storage yards provide space for the storage and maintenance of equipment used in a variety of Town "housekeeping" functions. The size and kind of garage and yard facilities depends largely on existing and projected Town size. Because no exacting space requirement standards have been developed, a major influence in determining space needs must rely upon discussions with department personnel and other communities. Based upon examples in other cities (Lakeville, Mendota Heights, Wayzata), the following building and site requirements should be considered in the long term programming of a public works facility for the Town of Otsego: Building Features: Offices (4) Secretary Lunchroom Locker/Toilet/Shower Area Overhaul Bay Parts shop, sign storage Equipment storage (heated) Equipment storage (unheated) Sub -Total Site Features: Outdoor Storage of salt, sand and other materials Parking and green area (minimum) MINIMUM SITE AREA REQUIRED R PEFERRED SIZE Square Feet 600 75 400 400 1,200 800 5,000 2,000 10,475 65,340 (1.5 acres) 30,085 2.5 acres 5.0 acres Location. Because the public works facility does not involve personal public contact, the facility should be located in an industrial -warehousing type of district. Such a locale would accommodate the need for large truck access, operation, storage, and repair. If such a facility were to locate in an area not already developed for such uses, the public works facility could be used as an example of preferred development quality within the Town. Site and Building. The site should be large enough for both present and future needs. The facility should be near a major arterial street or the intersection of two arterial streets. For internal circulation, at least two entrances should be provided. The site should also have subsoil and topography conditions which contribute to low development costs. The facility should also screen the outdoor storage of equipment via landscaping, fencing, berming or a combination thereof. Library Services: Existing Conditions. Currently there are no libraries within Otsego. Libraries are offered, however, in such surrounding communities as Elk River, Rogers, St. Michael, Rockford, and Monticello. While bookmobile service to the Town has been provided to the community in years past, service has since been eliminated due to budget cuts within the Great River Regional Library System which operates out of St. Cloud. Determining Need. The provision of branch libraries depends not only on the population size of the library systems service area, but also on local policy matters such as separate school and public library systems versus a combined system, the use of bookmobiles and so on. According to American Library Association standards, all residential areas should lie within the service area of a public library, and where a branch library system is the adopted local policy, a local service area radius of not more than one mile is recommended. While bookmobile service to Otsego has been discontinued, its former exposure to Town residents must be considered positive. It is believed with Otsego's continued growth, the Town should actively seek bookmobile service. Although visits may be infrequent, a regular, well timed bookmobile visit would provide Local residents a valued public amenity. Due to the Town's adjacency to a number of branch libraries in neighboring communities, the establishment of an independent public library within Otsego must be considered a long term need. This, however, should not discourage the Town from actively pursuing a facility in a long term framework. Space Requirements. In order to gain a quantitative understanding of specific library space needs within the Town, the following minimum space standards are provided as published by the American Library Association. The standards should be viewed in relation to both Otsego's existing 1990 population of 5,800 persons and projected 2010 population of 7,900 persons. Population Served: Shelving Space: Size of Book Collection Linear Feet of Shelving Amount of Floor Space Reader Space: Staff Work Space: Estimated Additional Space Needed: 15,000 volume for population 1,875 linear shelving for 15,000 plus two books per capita over 5,000 feet, add one foot of every eight books over 1,500 square feet, add one square foot for every 10 books, over 15,000 Minimum 700 square feet for 23 seats, aId four seats per 1,000 over 5,000 population served, at 30 square feet per r eader space 500 square feet, add 150 square feet for each full time staff member over 3 1,000 square feet Total Floor Space: 3,500 square feet or 0.7 square feet per capita, whichever is greater SOURCE: American Library Association According to the aforementioned figures, Otsego's existing population of 5,800 would warrant a 4,060 square foot library. With a projected 2010 population of 7,900 persons, the need would escalate to a 5,530 square foot facility. 10 Location. Because the library serves the people, it should be located where it may be accessible to the largest number of users. A location where there is a heavy concentration of community activity, commonly commercial in nature, is preferred. Site and Building. In addition to a location with a high concentration of community activity, several more specific site and building criteria should be considered in library site selection. 1. The site should be prominent. A corner site at a busy intersection where the library can easily be seen is preferred. Maximum use should be made of display windows and views of the interior. 2. The site should permit street level entrance. Although a site that slopes to the rear has certain advantages, a level site should be acquired if possible. 3. The site should be large enough for expansion, accessibility for service vehicles and bookmobiles, and a modest amount of landscaping. 4. The facility should be handicap accessible. 5. The site should permit orientation of the front of the building to the north in order to minimize glare from the sun. When this is not possible, orientation to the east is the second choice. However, an otherwise excellent, centrally located site should not be eliminated for lack of appropriate orientation. Modern year around temperature control devices and artificial light can be used effectively to minimize sun exposure problems. 6. Rectangular service areas within a building lend themselves to easy supervision. As a result, a site which is rectangular in shape and permits construction of a rectangular building should be obtained if possible. 7. Ideally, a site should have uniform foundation conditions, either rock or soil. Test borings should be made, preferably before a site is purchased. Certain other conditions should be met if the Town is to be adequately served. First, the library should be located reasonably near adequate automobile parking. Second, parking provisions should be made for bookmobiles, other official library vehicles, and library staff members. Third, automobile access to drive-in service windows should be provided where this feature has been incorporated into the library building design. 11 Fire: Existing Conditions. The Town of Otsego contracts with both the Albertville and Elk River Volunteer Fire Departments. Properties to the west of Nashua Avenue are serviced by the Albertville Volunteer Fire Department, while properties to the east of Nashua Avenue are serviced by the Elk River Volunteer Fire Department. To date, the system has worked well. Determining Need�Space Requirements. With the Town's current contracts with Albertville and Elk River sufficiently accommodating its immediate fire protection needs, the provision for an independent fire station which would be exclusive to Otsego Township must be considered a long range need. This projection is compounded by Town limitations in water systems for Eire fighting purposes. This, however, does not preclude the fact that the Town should investigate and possibly reserve future sites upon which a fire station or stations could be located. Location. The location of a fire station should be selected with care for the best possible fire protection. A station should be Located in such a way that minimizes response time to the major developed areas of the Town. The availability of fire service for example can be a major factor in economic development efforts. Heavily travelled streets are, however, typically bad locations in that they restrict vehicular entrance to the flow of traffic. Similarly, a site too close to an intersection may prevent fire equipment from leaving a station due to the backing up of traffic. In general, a good location for a fire station is a street that runs parallel to or across a major thoroughfare. When stations are built in outlying areas, the ultimate development pattern in the area should be considered. Site and Building. The site itself should be large enough for the station to be set back from the curb line for safety and to provide adequate parking for all volunteer fire fighters and space for holding company drills. The prime requisite for a fire station is to provide a building for housing fire equipment and men. The general layout of the station centers around the apparatus room: the minimum floor area required for a modern pumper truck is about 16 by 32 feet, for a ladder truck 20 by 50 feet, and for an aerial ladder truck approximately 20 by 75 feet. A major feature of the apparatus room should be the ability of fire protection vehicles to "drive through" the facility. Such a station design element is considered desirable for purposes of minimizing vehicular turn around maneuvers and public safety. The exhibit on page 14 provides a generic example of typical fire station design. 12 � Z qo N � 4 — � � �i�� LlJ W U C� �� W�W �i�< ��j(n n _ �°Li i� a = ��-r IIi or Y v Z � O W a~ � � �� ! � LN Q W �� m 3 � � � / W� �Q NN � �� %a_� � S`JNIlMtla P�£4 a W W O �oP° � a V . � ( �� O � � � P. is � \/ � N � � H � O V1 O ��SgS.SPP� -- —. . �--' ' � � N � M � � !� o �;,., 0 �— � 3ltlnb / � W �" 3ntl Nosatld � � V\��s�C �� . '`� cv li f7� N r r aM1 �° � '�tl batlNbtld % !�') m„ I i1 % � 4 � M !' 1 �°""" N NV300 f7 0 � r 1i F � t � to .no f` )3pp v ��l � F �•-� t N 11 a � a n (� e ,�� b00MNtl0 .�°� r. �... ' � � �� N �� . '3ntl tlnHstlN N b�� n � pbY �' n j� r /� '^ v n '3ntl a3lsllltlbW w\�1 '3hV NOSVw a0 O s 1 M N M in \I /l op L t 1/ � n o m 3nv drnolavw 3nv a3ni ovw { -- � � � '�tl NONNtlI `� � �� N � N '^ � �/.. 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While the fire station may be part of a building used for other municipal purposes, the area designated for fire department use should be separated from the remainder of the building. In addition to space for equipment and men, the fire station must contain office space, racks for drying hose, equipment maintenance rooms, offices, recreation rooms, kitchenettes, training classrooms, and other facilities such as underground gasoline tanks. Police: Existing Conditions. The Town of Otsego currently contracts with the Wright County Sheriff's Department for police protection and enforcement. One patrolman is assigned to Otsego on a daily basis with an additional patrolman dispatched to Otsego, Albertville, and St. Michael on a surveillance route completed three times daily. Determining Need. While the contracting of police protection is expected to continue, an immediate need has been cited to provide a part time sheriff's office within Otsego, possibly within the proposed Town Hall. While a community police force and station may be considered a long range need, the Town should recognize it as an integral component in the long term functioning of the Town and investigate potential development sites. Space Requirements. While specific need for a police station has not been quantified, a number of generalized space requirements can be identified for police stations which serve a population similar to that of Otsego's. A typical station for a population of between 3,500 and 7,000 persons would likely hold the following components: 1. Offices and Courtroom. Offices for officers and the central record office and courtroom are provided. A 4 foot wall space is needed for the intercommunication system in the office. The attorney -clerk's room must serve also as visitors' room in conjunction with prisoners' waiting hall back of the courtroom. The matron's office must serve for visitors' room for women; and the attorney -clerk's office, in conjunction with the corridor for men prisoners, must serve for visitors' room for men. 2. Women's Jail. The women's cell for four inmates and adjacent cell for two inmates could be used for juvenile or isolation cells. 3. Pantry. The kitchenette is a pantry for serving food brought in from outside and placed in trays, and for dish washing. 15 4. Men 's Jail. For men there are two isolation cells, one padded cell, and four four -bed cells, thus housing 18 men besides those in the tank. Day room for the privileged is provided. In terms of specific space and facility improvements, the following should be considered as design components (Dechiar and Callender 1980): I. General police administrative operations: A. Executive's requirements (room or space sizes in feet): 1. Chief's office: 11 by 14 2. Private entrance: Yes 3. Conference room and classroom: combined with courtroom 4. Chief's office toilet: 3 by 8 5. Chief's office clothes closet: 2 by 4 B. Records and Clerical: 1. Central records maintenance: combined with main office, traffic records, and personnel records 2. Map space: in main office 3. Mimeographing: in main office C. Communications: 1. Telephone and radio in main office 2. Public telephone in foyer D. Training: 1. Classroom: combined with courtroom 2. Library: in chief's office 3. Firearms range: at city sportsmen's range E. Identification: 1. Photographing and fingerprinting room 2. Darkroom: 6 by 10 3. Lineup or show -up: combined with courtroom II. Prisoners and Jail Facilities: A. Receiving, processing and confinement: 1. Drive-in garage: 12 by 24 2. Booking and searching room: 10 by 10 3. Medical examination room: combined with booking room 4. Isolation cells: two, 7 by 8 each 5. Violent cells: one, 7 by 7 6. Group cells: four, four bunks each 7. Tank: 10 by 12 8. Day room: 12 by 19 9. Toilet and shower room: one in day room 10. Attorneys' interrogation room: 8 by 8 11. Prisoners' visiting: space in corner courtroom 12. Matron's room: 7 by 10 13. Storage, bedding: 7 by 14 14. Storage, prisoners' property: vault 5 by 5 15. Enclosed vestibule to prisoners' waiting space: 3 by 12 16 16. Prisoners' waiting space ad3acent to courtroom: 3 by 10 17. Kitchenette -pantry: 7 by 12 18. Food storage: 4 by 7 B. Separate rooms for women prisoners: 1. One group cell: 12 by 12, four bunks 2. One isolation cell: 8 by 10 3. Shower, toilet 4. Matron's room: combined with examination room, 7 by 10 III. Receiving and Assisting the Public: 1. Separate entrance foyer: 8 by 15 2. Public toilets: Men's and women's: each 6 by 6 3. Public telephone: in anteroom 4. Complaint counter: combined with traffic violations' bureau and traffic accident reporting counter IV. Police Personnel Requirements: 1. Male locker room: 8 by 10 2. Coffee bar: combined with kitchenette V. Police Property Requirements: 1. Storage of recovered stolen bicycles: 14 by 14 2. Storage of recovered stolen property 71. Police Building Maintenance Requirements: i. Janitor's room: 4 by 7 2. Boiler and fans: 8 by 14 3. Heating and ventilating system 4. Electrical controls 5. Water controls VII. Courts: 1. Police courtroom: 17 by 30 2. Court clerk's office and attorney's office: 8 by 8 VIII. Public Safety Education: 1. Safety education office: combined with main office Location. Police stations are located on the basis of a number of criteria. Since contact with the public is not of primary importance, the location of these stations is determined by the district lines and by the speed and efficiency of moving personnel and equipment into these established service areas. As mentioned previously in this report, the Wright County Sheriff has voiced a desire to locate an office within a new Town Hall facility. While such a feature is considered positive, it cannot be considered a long range locational solution for Town police protection. Similar to fire station locational criteria, a good location for a police station is a street that runs parallel to S7 COURT CLASS ROOM CONFERENCE 17� >< 30� ALLEY MULTI -PURPOSE AND OFFICERS 8� K 14 PUBLIC FOYER 0 MAIN ENTRANCE EXIT F 0 J U Z Y Q a w 0 �: POLICE STATION DESIGN EXAMPLE or across a major thoroughfare. Due to cost considerations, a future split between contract services and local service is however not seen as feasible as may be the case in fire service. Therefore, location potentials will need to take into account possible local service to the entire community. Site and Building. While not a preferred solution, in smaller communities like Otsego, it is not unusual that the police department will occupy one section of a building that houses other departments. When police facilities are intermingled with other public service functions, particular care should be taken to see that the portion devoted to the police department is separate so that the public can enter other departments without passing through the police area. The planning of a small police station is primarily a matter of interior architectural arrangement. The facility's interior should be planned so that a limited number of personnel may operate the station sufficiently. �7 LOCATIONAL CONCEPT In locating community facilities, there are two basic philosophies with which to deal. These are (1) a combination of all possible facilities into one unified or campus type location versus (2) dispersing facilities into independent or satellite Locations. There is of course a third option which is a utilization of some combined and independent sites. To identify which locational concept is best suited to Otsego, an evaluation of each "pure" concept as it pertains specifically to the community is provided below. Concept #1 - Unified Location: As noted above, the unified location concept proposes the combination of community facilities in one singular location. Within Otsego, implementation of such a concept would hold both advantages and disadvantages. Advantaaes. 1. Substantial cost savings may be gained through the sharing of many facility components. Within a campus type concept, duplication of many facility elements may be avoided (i.e, mechanical systems, lunchrooms, janitorial, and refuse service, reproduction equipment, etc.). 2. The establishment of a community facility campus may more easily allow the establishment of a community identity than would a dispersal of facilities. The grouping of such facilities would also establish an identifiable public service center within the Town. 3. The grouping of community facilities in one location would likelI provide convenience to both employees and facility patrons. To employees, such a Disadvantaaes. concept offers convenience n 1. Otsego's existing community service conditions strongly negate the need for a grouping of community facilities at this time. With the Town currently having police and fire protection contracts with Wright County, Albertville, and Elk River, the need for such a campus and large land holding is significantly lessened. 23 2. Also to be considered are the Town's current land holdings. The Town's solely owned property (the Town Hall site) is of a size and in a location which support the dispersed location concept. The site itself is not capable of accommodating all possible facilities and would result in some incompatible use relationships. 3. By grouping public service facilities in one location, many areas within the Town will be limited from preferable levels of service and/or response time. It must be recognized that not all community facilities have the same locational needs. 4. To implement the unified facilities concept, the Town would have to acquire a parcel of land large enough to serve all such facilities. Acquisition of such a large parcel of land may prove both difficult and expensive. Concept #2 - Dispersed Location: The dispersed location concept proposes a scattering of community facilities throughout the Town in areas where each particular service function may operate most efficiently. Like the unified Location concept, the dispersal of facilities holds a number of advantages and disadvantages. Advantages. 1. The dispersed location concept allows each individual community facility to provide specialized service and locate in areas deemed most appropriate for its particular function. The concept also allows the phasing -in of particular services when future need arises. 2. The dispersed concept allows a degree of flexibility not offered in the previous unified concept. By allowing community facilities to function independently, flexibility in site selection is offered. While general areas suitable for a particular use may be somewhat fixed, actual parcel location is quite flexible and may respond to such issues as parcel availability, cost, etc. 3. Implementation of the concept would not require acquisition or assemblage of a large parcel of land needed to support all Town service facilities and could occur in a phased process over time as opportunities and needs arise. 4. The Town currently owns land and offers a community service (Town Hall) which supports the dispersed location concept. 5. The Town's existing service functions which would support a unified concept fire, police) are currently contracted out from neighboring communities. 24 6. A dispersed location approach offers the ability to more effectively maintain land use harmony by siting facilities in areas of similar use types. Disadvantages. 1. By providing satellite community facilities, some duplication in services would occur which would not be present in the unified concept discussed earlier. 2. Through the dispersal of facilities, the Town may have a more difficult time establishing a unified community image. This may, however, be considered a positive in that it would allow certain high visibility facilities (i.e., Town Hall) to establish a community image and allow other typically less attractive facilities (i.e., public works) to lie in areas of lower visibility. Thus, the less attractive facility would not detract from the Town's preferred image. Conclusion: The discussion of locating community facilities must an evaluation of basic approaches and concepts. conclusion has been reached at this broad level, the the approach can be tested through analysis of possible applications to specific areas and sites. begin with once a validity of various and 25 SITE SELECTION CRITERIA Evaluation Criteria: Determining the location of public service centers within Otsego must be approached in an organized fashion and founded upon an objective set of criteria. As a means to evaluate locations of facilities within Town, the following general site selection criteria applicable for all public facilities, as suggested by the University of Minnesota Fire Center, are listed below: A. Accessibility/Location 1. Centrality 2. Accessibility (Immediate) 3. Accessibility (Long Term) B. Compatibility/Impact 1. Comprehensive Plan 2. Existing Land Use 3. Visual/Aesthetics 4. Supportive Services C. Physical 1. Land Area 2. Topography 3. Soils and Drainage 4. Utilities 5. Flexibility 6. Site Size D. Social/Environmental 1. Displacement/Relocation 2. Natural Resources 3. Recreation/Historical/Unique E. Cost 1. Property Acquisition 2. Site Preparation The following text provides a general explanation of each topic and sub -topic. Specific location evaluations for each public service facility within the Town should be evaluated separately using the general criteria. 29 A. ACCESSIBILITY 1-1 LOCATION 1. Centralit Basically, the concern is to locate a public facility so it may lie at the center of its service area based on time and distance accessibility. Service areas may differ for each type of facility. Whereas supportive facilities and population would be major considerations in selecting a site for administrative offices, response time radii would be critical in determining the centrality of a police or fire station. 2. Accessibility (Immediate This criterion relates to the ability of the street system to serve a facility site safely and efficiently. The level of accessibility is directly related to the type of facility. A public works garage or fire station which requires accessibility to the entire Town must be located on streets where load limits allow for year round heavy truck traffic. A Town Hall, on the other hand, has the public coming to it for information and services. The following map illustrates existing street classifications within Otsego. 3. Accessibility (Long Range) It is important that the proposed (long range) street system holds the ability to serve a subject site both safely and efficiently. This criterion includes projected traffic volumes, congestion areas, and street improvements. The map on page 31 displays proposed street improvements to Otsego's street system. B. COMPATIBILITY�IMPACT 1. Comprehensive Plan It must be determined if a proposed public service use is compatible with proposed land use in the area as cited in the Town's Comprehensive Plan. Also to be considered is whether a particular development or use is consistent with land use goals and policy stipulations. 30 r.. ; � �, �- o N lJ f 1 � � p � h � � I1� W d7 � p U W ul� g �� ~p i,� --� iW n��< �w ��` � pm o.3� ��((Q[[ f �� i� = al-w io o a = u �� I � `� -� ogy i maw ' i.i v% iSii � `JNI' N a. �, M _• e\%. i ,'� " tp '^ i N c .....-_... N - - _wit �, � N r � � N L r0 -`_' 3lvno nv wavno .M w �� 3 3nV NUSaVd � J � �Af� N N M h � N s E ,ram.. aM1 F f '3nV OaVN�Vd c . �... r ,', �.. � � M '�"' • j ,�' N NV3U0 M cD .- G ! � � a' r �; ��300 ! C y n �.,� e � e t _ �-w.ao 0 �u.n� r` Q N F .— N � ur N 1 •3nv vnNsvN N � � 1 "3AV VIIHSVII N � � d�YorH 1 3nV NUSVw � rn L) � 3nV w N o3'IUVN aoewvr a3olvr 3nV t13N4f xnv3a M N F N 5 N m '3nV N31SIllV�w �T' O r� r%� n •:env alnl ovw '3nV NUNNVI � `\1l'1? In r- f0 11 N a r I). � f.,,,� 5 1 r �- �� - f0 '- � N � yr Y r p m n 3nV N3lUVN r` N � '3nV N3UlVr '.1r,V NJUvr t� r�;: r a3lUVN �- , � r i N M � o=p't r� � Pf' m W a w a i+ L O O U U ; C ... vi � C �� NBC �'(j p � oV �a Z .�� O a N G (� }.1 Y" 0 � +� � a d G f0 O � � N G cC G N 7 1I0^ V/ .N t0 ++ � '� a � a a .. �� o c CC� d G ® ■ ® ■ ■ ® � 2. Existina Land Use A determination needs to be made as to whether a proposed land use is compatible with existing surrounding land uses. Generally, a community facility should be located near supportive land uses and more specifically, proposed public service facilities within the Town should be compatible with their neighborhoods. If some conflicts are present, all design related steps possible should be undertaken to minimize their impact (i.e., berming, landscaping, etc.) 3. Visual/Aesthetics An evaluation must be undertaken regarding how the visual impact of a development and its operation will affect surrounding land uses. A public service structure should present a positive expression and create a source of community pride. Contributing to desirable aesthetics of a site are such inherent characteristics as topography, vegetation, water bodies and views. Man-made elements, such as surrounding streets, buildings, and landscaping, should also be given due consideration. The following suggestions should be taken into account in the planning of public service facilities within the Town. a. A location be selected which: (1) Provides a high level of accessibility to the facility in order to best serve the public. (2) Provides adequate area for off-street parking facilities. (3) Relates well to surrounding activities and functions on adjoining properties. b. Quality architectural design is implemented which is. (1) Compatible with surrounding structures. (2) Utilize a site's topography, vegetation, water bodies, views, and man-made elements such as surrounding streets, buildings, and landscaping. 32 4. Supportive Land Use This criterion involves determining whether or not nearby land uses are not only compatible but will be supportive of intended uses. For example, a public works facility is basically an industrial land use and has supportive needs such as heavy equipment access, etc. C. PHYSICAL 1. Land Area 2. 3. 4. Site size requirements for each public service facility must be determined by analysis of the functional activities that occupy the site. Size refers to usable/developable area. Closely related to size is lot configuration which is concerned with the shape of the lot. Generally, the more closely the site approaches a square, the more usable the site. The amount of land for a facility must be determined by the Town based on community growth and projected service demand. A development site should allow for any necessary additions or expansion. To o raphy This deals with the development standpoint, with a slight grade to not have long grades in scattered steep slopes Soil/Drainage A review of Utilities contour of a site. From a an ideal site would be level ensure drainage. A site should excess of 10 percent or minor in excess of 15 percent. the An assessment needs to be made as to whether a particular site may have access to existing or planned utilities. Because the Town currently does not hold public sewer and water systems, subject sites should be evaluated in their relation to future sewer and water system plans. It must be recognized that utility extensions and hook up can substantially increase building costs. 33 5. Flexibil1t Flexibility relates to the total usability of the site in terms of development and building location. As such, an ideal site would not have any physical limitations caused by extreme topography and soil or drainage problems. 6. Site Size A site chosen for a particular public service function should be of a size which may allow the subject activity to function properly both in an immediate and long term framework. In determining site size, an evaluation must be made of proposed building size, parking area requirements, desired green space and expansion requirements. In total, such an evaluation should provide a clear indication of site size requirements. While noted earlier, any site selection process should strive to select a site which lies compatible with its neighborhood. D. SOCIAL AND ENVIRONMENTAL 1. Displacement Specific attention should be placed upon the potential displacement and relocation of residents and businesses resulting from the development of a public service facility. This impact should be minimized whenever possible. 2. Natural Resources This criterion is concerned with the site's development and operation impact on the site's natural resources. Those sites which have the least impact on the natural environment satisfies this criterion best. 3. Recreation/Historical/Unique This criterion addresses areas and structures that are unique to the community or of historical significance. These areas and structures contribute to the community identity and should be preserved. 34 E. COST CRITERIA 1. Property Acquisition This criterion involves the real estate value of the site and any associated cost. Lower land costs should only be applied to sites which would otherwise be acceptable by meeting the physical criteria. 2. Site Preparation Development costs are the costs directly associated with site preparation and construction. Generally, any site having met the physical criteria will have acceptable development costs. 35 COMPREHENSIVE PLAN The analysis of community facilities location cannot take place without recognition of both the existing and, more importantly, the future land use development of the community. If functional efficiency and activity compatibility is to be achieved, the future development of the community must be taken into account in selecting areas and specific sites for public service facilities. The current land use pattern and activity in Otsego is shown on the map on the following page. The existing Otsego Land Use Plan, established by Wright County, is an initial guide addressing future development. This plan is illustrated on page 41. The existing plan has, however, been recognized as limited in scope and as a result, a Comprehensive Plan update, commissioned by the Town Board, is presently underway. The Inventory portion of this assignment was completed in February 1990 with the publication of a report summarizing factual present and projected social, economic, and physical characteristics and features of the Town. This document provides relevant insight into a number of factors affecting community facilities and should be consulted for a detailed review of all considerations. `t'he Comprehensive Plan itself is nearing draft completion and is expected to be subjected to the review and approval process in the Fall of 1990. While the plan is presently tentative in nature, there are what are considered to be several well established parameters which are fixed situations and will be fundamental and unalterable factors. A summary of these parameters, as documented primarily by the Inventory, are as follows: 1. The community is presently 75-80 percent rural/agricultural in nature and this dominance of non -urban geographic land use allocation will continue long into the future. 2. From a service cost and capability perspective, from a possible environmental/ground water pollution perspective, and from a need to preserve prime agricultural land and to maintain economic farming operations, urban development needs to be confined and strict adherence to an urban/rural service area needs to be established. 3. Urban development which is residential in nature should first infill existing vacant areas in the northeast corner of the community and if expansion area is needed, move progressively outward in a contiguous as contrasted to a leap frog fashion. Based upon present and past trends, a population of 6,780 is projected for the year 2000 and 7,900 for the year 2010. This produces a household count of 2,055 in 2000 and 2,450 in 2010, as contrasted to an estimated 39 Z m N r N 2 00 _00 ui WW 01 a'c�i0 U U LLJ g nw ¢ram N sa oz0 J a W H i a O 0 a V I U o z xw �o�w mi a owam fr ' a�D Q W o°�ow in m a V N :a:s T � N �y soNlvava , a a a` a a r a � a a � r- (O In o w IF.o a `<r IF a _ < a a a a < a < TWO a a a AV ),VOVn0 a a a. a a w ,ao 3AV NOSaVd 04 Ifl a e" N < a N a K) ` a a a a a C44a a a0) N M ¢ N a r r7 _.�Vn VN l SVN F o a a: ..¢ ■ ¢ a a a vI a a ¢ b a a a a a a a ' a 3AV a31SIllVON a a >' ¢� a a 3AV 3MO1804 a tO a a a m a a a 43AV a3Al VYi a a a a 3AV NO 1 II< a c m N t 1q' w < a a ,< n ,n < ( ✓ IT + It? i 7' <a XnV3 V .*3AV XI 39 Vl / a; v IF FF a 1HVN a 83-WVN a 8310VN 310VN IIIWW Y j y< a rn N a O ° N t a r SIF a � a a N m a• N < P a •3AV a30lVr a aoomr 2 a 1x ¢ Q� r ¢ ,. a.. a3 .. a U � U 3 7 d a E U C f0 U a to > U U N N O �? N N U N O N O •- r U OI (0 0_ � Q C C _ c0 ;O o V) N C 01 cc cc O v 7 W C 0J N ccm c0 cc �. cc O C U 7 7 m a c' in in D a o® aosv?a SONnxYN vinomwi ONINNYTI HdlooNVa ammisnVN N31WYN ll3LNIVH oaodavN 313HOVa Aowno A3'10ln0 30HN3n0 stmm isvno YfvnO 3T13HINYno TWO Avavno tiost(Vd HSIN)JYd N010NINSVd NNYd T11 Yd N39Ovrlvd 30Vd 1130aVd M x3yd aNY1H0 N3HO0 H3(4)0 T1300 tIv300 AY0 ,0 Ymton HVIN9 ,0 000MNY0 NNVYf13N Y(VH033N NOlHOnVN NOSVN vrnlsvtl N3WN )4310Yt1 YT/OYN N3HYN Hn I13M N3Lsf1T/DYI N3AVn Nrf3AVN tl0sVt1 7YHSITYN 3MOlNVN 3013NOVtr )IW. ovIY rllvsvl 339YNvl HONNYI 30NY1 N3@r!l LNOYIVI 1N36YIYl NYYIHOYI xnV39 n 3NVy ONYTTYN YON3IYN N3SIV)l N3111YN 111VN NYOVV MOWN N31OV4 Wst1Yr LL3HYr 130NYr NoslYrvr s3mr aagrrvr N30lVr NOSWJYr H36vr Y N b g J Q F� F— Z O W J _p () W W 0 ry J J J Q Q ch� D W W W cf� F) � C� O W w O Q Q ry C U 4 V~1 H N N a W El t 41 household number of 1,725 in 1990. This increase of approximately 700 to 750 households within the next 20 years can well be accommodated within the development content suggested above. Moreover, the possible addition of public sewer facilities will serve to further confine the geographic area necessary to accommodate increases. Following past and existing trends, approximately 2,000 additional acres of land will be needed between 1990 and 2000 to accommodate residential growth. 4. Commercial services within Otsego are presently limited and the market for locally oriented retail service facilities will remain relatively low due to existing facilities in neighboring communities and the travel/work pattern of residents. At present, 30 to 45 acres of land are classified as commercial and the economic profile of the Comprehensive Plan Inventory projects a very minimal increase in demand to 10 to 15 acres by the year 2000. This does not take into account commercial services geared towards Highway 101 users which could be expected to increase land demand, but not to a significant degree. 5. Industrial development is an extremely competitive market and is influenced by many factors far beyond the local setting. Areas set aside for industrial activities are seen as needed for the future of Otsego but the size of such allocations should likely not exceed 100 to 200 acres. 6. Highway 101 and its upgrading will continue to be the focal point of non-residential urban activities within the community. Due to access, visibility, land use harmony, and land demand and absorption needs, this area and notably the intersection/interchange locations should be the areas where concentrations of such activity are targeted. Based upon the foregoing facts and related assumptions, the map on the following page lays out the conceptual Land Use Plan for the community. Again, the tentative and unapproved nature of its plan is emphasized. It is felt, however, that while refinements to the concept may result, existing development, and non -local major improvements, notably Highway 101 will basically dictate a final plan highly reflective of the pattern suggested. As a result, efforts taken to locate present and projected community facilities should be based upon this basic future land use pattern. :•:CJ•: 0)00 Of N Orion cc � am = 3w w n. -� w V N N Last V I. 'de- ' a3'IOVN 3AV alOVf N M � $ I;Fv '\`''•'• 4 4 a 0 1 0 0 1 0 0 0 6 a I I I 1 0 1 1 1 00 0)8VN3Vd oil m d' N '3AV 831SIIIV3w 0 M '3nv a3AI 3vw 03AV NONNVI U% N m v~i v~i o « « ^ ^ N vl r « o o ^ m 03AY a3lOVN r N « N ro N '3AY a33IVf n 3AY a30Vf r N « N ro N '3AY a33IVf n 3AY a30Vf N '3AY a33IVf n 3AY a30Vf a3l0YN r. Vvp SITE SEARCH AREAS Based on the information provided in the service delivery and site selection criteria sections of this report, certain areas within the Town may be earmarked as suitable for certain community service facilities. The map on the following page generally outlines eight site search areas and identifies specific service facilities which have been proposed or suggested to lie within them by the Building Committee. It must be noted that designated site search areas are simply generalized identifications or areas conducive to a particular public use and are not to be taken as fixed locational recommendations. The following text will provide a brief analysis of each particular search area by offering a listing of site advantages and disadvantages. Once specific sites have been narrowed down, an in depth evaluation of each should be conducted utilizing the site evaluation format discussed earlier. �a Z t7 = � W� o Z �O H 3 1`� .�`.i cc'`� w •',, �, i d �`. a N 1' N �: I !','r a351VN �� :L-! 1 r" �: ( ,. W � �� Q O � Y \ O � � rn N �' � � � r W � } LL J �W �� O~O Z �W �� ¢�� r> c7 �' J N �$ �3� ;��;% t/ ��j+ ,.r,` - i,. �� o } r � U O F- � �_ -� ��nJy� SONIZMva P�f9 .� IV O (� �_ � N .,. r . N N °' ' � N o NOSavd M w r v � �« tug J .N 0 .� ro .� r� U1 � :I :I 33� m N U U �1 U ..i ,� •� O � o rl� g o N �� a ��U .w a w •� � •� 000 � :1 •�•�� a'x � ox � m rororo��.�•��+ +� �Is��,ao•�+�o o +�+�+� O3a ro3 w �m�U \+� •rl •'-I •rl k U N Ul U f~ f~ 1~ O •rl U •ri � � � .--I ,Ci r-I :I .ci 'C1 'U 'd rl � O •ri � ��a.wwa o� �� +� :. G ro t�i tia at N N a• . ~.• 17 0 (n N u, Fyy « N �—"""'O OOOMXVO � � � � M C l� ri rl O N p�, r-I r-I F7:••.� N r) N•. Of � b \\ � N � ��ro �P, vf1HSVN � r � ro ro � G 3 $ .� � Oy N � � t~ O CT CT•r1 � r N ro !A N � U ••I •rl x ,~ zroroo\xx\ `.; O \z z U N\\N in v •,� O'i \\\N O� N N « � 3AV a31SIllVOW +� M }J }J .IJ r-i M d' rl m '3nv NOSdW � ro O O O M � M �, U '� N N N 'd 'd 'd Z7 o x�ls�s�xxax ao � rn � o �anv ynolavw � a +�+ � � � � � +�' +�' '3nv a3nl ovry � .>~ .� .0 � G q G Oinul�nOOOO '3AV NONNVI U rn oo w U U U U N 3X anty r� � N o N '" r7,.ty�\ J ri N M d' Ul l0 [� � m F ?' � Xf1v3B vl '3AV Xf1v3B tll —" A�, � � N N N L M \. Q i vX a3lHVX �'� �- « n nu v � n a��avX anv aalovN a a3lavN � L a =� V � O r �- � � A, � N N y « � /� � /W� � m N « ^ M w P /Y ^ � N w N do '° yo2 N •anv a3alvr /� aoervvr 2 �P - 1..1. Qi J� � �}J a3'Jlvf N 0 ■� '3t\o' i139ti^ � "3nV 2J3BVf s, n., SEARCH AREA #1 Proposed Use: Administration As shown on the preceding map, Search Area #1 overlays the Nashua Avenue/County Road 39 intersection and the existing Town Hall site. The Town has tentatively proposed to construct a new administrative facility upon the existing Town Hall site and to relocate and/or remove the public works facility which is also currently active on this site. Site Advantages. 1. The town currently owns property within the search area, thus no major land acquisition would be required for a new administrative facility. 2. The site is centrally located in an east/west direction. Thus it does not discriminate from any area of the community in terms of travel distance and provides a unifying in uniting rural and urban areas. 3. Search Area #1 is afforded excellent access and visibility via County Road 39 and Nashua Avenue. 4. Site topography is generally conducive to the construction of a new administrative facility. 5. The subject site is the historic location of Town administrative facilities. Site Disadvantages. 1. An administrative facility is not allowed without special approvals due to the subject area's Wild and Scenic River zoning designation. 2. An administrative use could pose some possible compatibility concerns with adjacent single family residential uses unless special attention is given to site protection improvement. 3. Construction of a new administrative facility would not require the displacement or relocation of people or land uses. 4. Some land acquisition would be required to enhance a new administrative facility to meet DNR suggested impervious surface coverage requirements. 5. The subject area lacks proximate supportive services. While a new facility would indeed be separated from major non- residential activities, historical example has not shown this to be a problem. Summary: As shown above, Search Area If offers a large number of advantages which would support the construction of a limited service public facility confined to a new administrative facility. While some locational disadvantages are evident, it is believed the majority of negative impacts may be relieved through sensitive site design and possible limited area expansion. SEARCH AREA #2 Proposed Use: Administration/Public Works Search Area #2 lies south of County Road 39 between Mason and Nashua Avenues upon property owned by a Mr. Don Davis. The Town Building Committee has suggested the possible location of the administrative and/or public works facilities within the search area. Site Advantages. 1. Apparently, there is ample land available to accommodate the proposed facilities. 2. The search area is afforded excellent access via County Road 39. 3. With minimal surrounding development, construction of community service facilities within Search Area #2 would present minimal compatibility concerns. 4. It is assumed search area topography and soil conditions are suitable for development. This should, however, be verified by the Town Engineer. 5. The site does not lie upon soils considered prime for agricultural development. Site Disadvantages. 1. The search area lies within the Town's tentatively designated "rural" area. By constructing community facilities west of Nashua Avenue, the Town would defy a policy of retaining land within the western one-half of the Town for "rural" use. 2. Utilization of this location would set a precedent and likely draw additional development into this area. 3. The Town would have to purchase the land necessary to construct the proposed community facilities. 47 4. An administrative or public works facility would lie isolated from the Town's urbanized area. 5. With its isolation from the Town's major urbanized area (east of Nashua Avenue), site visibility and community image/identity must be considered less than desirable. 6. No supportive services lie proximate to the subject site search area. 7. By locating a public works facility within Search Area #2, large trucks and maintenance equipment would impede into a residential area and utilize roads traversing established neighborhoods. Summary: Because Search Area #2 lies within the Town's designated rural Land use zone (west of Nashua Avenue), it is believed the Location of either Town administrative or public works facilities within the area would contradict established and proposed Town development policy. Therefore, the construction of either facility within Search Area #2 is a major possible change in community plans which would have far reaching impacts which require thorough consideration. SEARCH AREA #3 Proposed Use: Administration/Public Works/Fire Station #2 As shown on the search area map, designated Area #3 overlays the Nashua Avenue/85th Street intersection. Suggested uses in the area include administration, public works, and fire hall facilities. Site Advantages. 1. The search area is centrally located in an east/west direction, thus it offers no discrimination to community residents in terms of travel distance. 2. The site appears suitable for the future location of a fire station. Such a station should be considered in the long term and could ultimately relieve Albertville of its fire protection duties in the western one-half of the Town, and in conjunction with a station located near Highway 101, could balance Otsego's fire protection service. 3. It appears there are no soil or topography limitations within Search Area a which would 1imit development. 4. Construction of community facilities within Search Area #3 would not require the displacement or relocation of any persons. Site Disadvantages. 1. The location of a public works facility within the search area would likely raise significant compatibility concerns with adjacent residential uses by bringing large trucks and maintenance vehicles into the area. Noise and outside storage would also create problems of land use harmony. 2. The Town would have to purchase the land necessary to construct any community facilities. 3. The area is afforded relatively low visibility due to its isolation from the Town's major urbanized area. 4. The location of public facilities with the possible construction of a second long range fire station within Search Area #3 lies in contrast to the Town's Land Use Plan which proposes a continuation of single family development in the area. Summary: Site Search Area #3 appears generally inappropriate for a public works facility in that it would present some compatibility with adjacent residents by introducing truck traffic into the neighborhood. While there are some merits facility within the district, acquisition and facility access area's appropriateness. to locating an administrative it is believed that property isolation issues diminish the The search area does appear conducive for range fire station which could ultimately fire protection duties and offer support station located near Highway 101. SEARCH AREA #4 the location of a long relieve Albertville's to an initial Town fire Proposed Use: Administration/Library/Fire/Police Site Search Area #4 overlays the 85th Street/County Road 37 intersection within the Town. The search area has been identified primarily because of its centrality in Otsego's urbanized area. Suggested uses in the area include administration, library, fire, and police. Public works facility location has been excluded due to obvious conflicts with the area's adjacent single family neighborhood. Site Advantages. 1. The site search area lies in the center of the Town's urbanized area. 2. With the proposed easterly extension of 85th Street, the County Road 37/85th Street intersection is likely to become a highly visible area within the community. 3. It is assumed there are no topography or soil limitations in the area which would restrict development. This should, however, be verified by the Town Engineer. 4. The site search area is offered excellent accessibility via County Road 37 and 85th Street. Site Disadvantages. 1. Any community facility construction within the area is a new non-residential use in an established single family neighborhood. 2. Public service uses in the area would lie in contrast to the Town's Land Use Plan which suggests a continuation of single family uses in the area. 3. Only limited areas of land are available within the search area. 4. The Town would have to acquire the land necessary to construct any community facilities in the area. 5. The area is not "central" to the entire community and access does not promote entire community identity. Summary: Due to the established residential character of the area, it is believed the location of any public service facility within Search Area #4 would present some significant land use compatibility concerns. As such, the area is not considered appropriate for community facility location. 50 SEARCH AREA #5 Proposed Use: Public Works Site Search Area #5 overlays the County Road 122�County Road 37 intersection. The Town Building Committee has suggested the Location of a public works facility in the area. Site Advantages. 1. The search area is afforded excellent access via County Roads 37 and 122. 2. The area is centrally located from the Town's projected urbanized area. 3. It is assumed the search area is relatively free of any soil or topographical limitations which would restrict development. 4. Enough land area exists to accommodate a public works facility. 5. Construction within the site search area would not displace or require any relocation efforts. Site Disadvantages. 1. The search area overlays an S-2, Residential Recreational Shoreland Zoning District. The purpose of the district's establishment is to preserve areas with natural characteristics for recreational purposes and to manage areas suitable for residential development. The establishment of a public works facility in this area would severely contrast the intent of the stated S-2 zoning designation. 2. The proposed use would lie in contrast to the Town's Land Use Plan which suggests residential uses in the area. 3. The establishment of a public works facility in Search Area #5 would bring large truck and maintenance vehicle traffic near the residential neighborhood which flanks Odell Avenue. 4. The Town would have to acquire the property necessary to construct the public works facility. 51 Summary : The major concern with locating a public works facility within Search Area #5 involves the infringement of an industrial type use into an S-2, Residential -Recreational Shoreland District. The proposed use severely contradicts the intent of the district and would bring truck and maintenance vehicle traffic into an area designated for residential development. SEARCH AREA #6 Proposed Use: Administration/Police Station/Library Search Area #6 overlays County Road 42 between County Road 39 and the pending extension of 85th Street. Proposed public facilities within the area include an administrative facility, a police station and library. Site Advantages. 1. The search area is in a location where there is a heavy concentration of community activity, high visibility and sites which are easily accessible. 2. Community identity would be enhanced by the high visibility of the area. 3. The proposed uses are consistent with the draft Town's Land Use Plan. 4. The proposed public facilities are compatible with existing land uses in the area. 5. Supportive services are anticipated in the area. 6. The site search area would accommodate a police station's need for speed and efficiency of service. 7. Sites within the site search area are relatively flat and hold few topographical limitations which may impede development. 8. Ample land area exists to construct the proposed public service facilities. 52 Site Disadvantages. 1. The Town would have to acquire the land necessary to construct any community facilities in the area. Land within the search area is likely to be expensive. 2. A portion of the site search area lies within the Mississippi River's 100 year flood boundary. 3. The Town currently owns land on which a new Town Hall has been proposed. 4. The area is not central to all constituents and would therefore not serve as a community tie. Summary: As evidenced above, Site Search Area #6 appears highly conducive to the future development of a police station and/or library. Administrative facilities also are viewed as a positive possibility for this area. The area offers excellent access and visibility, proximity to the Town's major population base, supportive services, and ample land area for which to construct community public service facilities. This area needs to be carefully evaluated as a location option. SITE SEARCH AREA #7 Proposed Use: Administration/Fire Station #1/Police Search Area #7 lies in proximity to the County Road 42/Highway 101 intersection. The area's proposed fire and police facility uses equate primarily to a need for quick service call response time and adjacency to the Town's population base and intense development. The administration facility, on the other hand, has been proposed to exploit visibility and accessibility advantages in the area. Site Advantages. 1. The site is centrally located in a north/south sense and while not currently adjacent to the Town's population base, the site anticipates a southerly extension of the Town's urban core in the form of industrial development as well as residential development. 2. The fire and police stations would lie adjacent to the Town's higher intensity uses which command a greater level of service. 3. Location of a fire station within the subject site search area would allow the facility to assume the fire protection responsibilities currently held by Elk River. Under this scenario, Otsego could, in the shorter term, retain its contract with the City of Albertville for the western one- half of the Town. 4. The site is extremely accessible, overlaying two of the Town's most dominant roadways. 5. The proposed land uses are consistent with the Town's Land Use Plan. 6. The proposed public service facilities would be generally compatible with existing surrounding land uses. 7. Supportive services either exist or are anticipated in the area. 8. Land within the site search area is relatively flat and is generally conducive to development. 9. Construction of the proposed community facilities will not force the relocation or displacement of any businesses or persons. Site Disadvantages. 1. The Town would have to acquire the land necessary to construct the proposed public service facilities. In a location which offers such high visibility and access, land costs must be considered a significant development factor. 2. In the long term, MnDOT has proposed eliminating direct County Road 42 access to Highway 101. While this presents some concern in terms of police service, it is believed that future frontage roads, possible bridging, and a lack of significant development in the floodplain east of Highway 101 will eliminate any fire protection concerns. 3. The Town currently owns land which has been proposed for a new Town Hall. 54 Summary: Generally, Site Search Area #7 appears suitable for its proposed community service functions. The area meets nearly all the site location criteria preferred of police and fire stations and possibly administrative uses. While the proposed long term removal to Highway 101 may present some concern is considered minimal due capabilities and limited development the Mississippi River floodplain. SITE SEARCH AREA #8 Proposed Use: Site Search A intersection. facility due residential routes within Public Works of County Road 42's access service response problems, to frontage road access east of Highway 101 within rea #8 overlays the County Road 122�Highway 101 The site has been designated for a public works to its adjacency to similar uses, its isolation from development, and its proximity to major traffic the Town. Site Advantages. 1. The site is highly accessible to major roadways within the Town. With its adjacency to Highway 101, facility truck and maintenance vehicle traffic would be removed from single family neighborhoods. 2. The proposed industrial type use is consistent with the Town's draft Land Use Plan and existing neighboring uses. 3. Ample land area exists within the site search area to allow a public works facility to function properly. 4. The public works facility would lie adjacent to future industrial type uses which hold similar development requirements (roads, outdoor storage, etc.). 6. The proposed use would not force the relocation of residents and businesses. The subject site lies out of the Mississippi floodplain. displacement or River 100 year 55 Site Disadvantages. 1. The Town would have to acquire the land necessary to construct the public works facility. 2. A portion of the site search area exhibits some topographical limitations. The extent of these limitations should be verified by the Town Engineer. 3. Existing scattered residential development will require special protection measures. Summary: Generally, Site Search Area #8 appears suitable for the development of a public works facility. The area is provided convenient access to two dominant Township roads (County Road 122 and Highway 101), lies out of the floodplain, and lies in a currently undeveloped area. 56 TQWN HALL ANALYSIS Background: Based upon directives received from voters in the March 1990 Town meeting and subsequently July 1990 continued Town meeting, detailed plans for a new administrative facility have been Formulated, Copies of the plans which have received tentative approval by the Building Committee are shown on the two following pages. The facility which has a projected construction cost of $375,000 to $400,000 is now being prepared for future bidding. A matter of continuing concern, however, is the possible location of this new service center within the community. A major portion of this report has in fact been devoted to this topic. On an initial basis, the Building Committee strongly favored the existing Town Hall site for a number of reasons. In summary these included: 1. A location geographically centralized plus tying both urban and rural areas together. 2. Minimization of development expense due to existing land ownership. 3. The necessity of a vote by a strong majority of the voters to approve a new location. 4. The maintenance of the historic center of the Town. This position was taken also with the assumption that on the long term, the public works facility, which is viewed as internally incompatible as well as lacking harmony with the surrounding neighborhood, would be removed and relocated elsewhere in the Town. It was also recognized that the site in question is within the Wild and Scenic River corridor of the Mississippi River. While the appropriateness of this classification to the property has been questioned based upon distance and topography features, this situation was one contributing to the proposed removal of the public works facility From the site. Passive park areas have also been proposed to enhance natural open space and limit site area utilization for activities in keeping with the character established by County and State regulations. Moreover, utilization of the site for an administrative service center was and is viewed as parallel to uses specifically allowed within an R-2 Zoning District which is applicable to the site. Discussion and opposition, however, has been possible continuation of the Town Hall at thi s environmental concerns have been a premise for analysis has revealed that such concerns can in within the context of the objectives which It therefore appears that the central issue is are generated to the locationWhile this objection, fact be resolved to be achieved. more a factor of i i . - � __�._- - =i - _ �._ .. ;; I � i ,, �- � ' '� i� �', , ,;' ,. ,;' �!�� ;;� fir. ---�---; ;;;!ji �' � ' i '1,;�i j,l I I' i'.i� �I il'!jj - '�� ;' �, I �! ,, , �' .� I . .� �' ��' '�,l' �i i { Il �;l � .;( �, ,, ��,i; Iil��!'�i il,; i�, , �� lli�t l(' jl j�li� 60 !+ I�ij �i i`i i!' �i+�il,.11;I�I,...i =:_� i ,� i ,i ':"i: `':�t .;i_•; i BUILDING ELEVATIONS —_ / \ � .. �, ' � � ' ��a� �oxll_b .. � .., __ I � � I �, ' I .. �, MCr.ETINC,I �No I � ¢,A�NcAUCT � I " ,(a -I x 4�i � YOWN�aHIP ' I , ba�RD 10-LR24.6 , F, i ; -�J; ',. �� i. � "" IOK Il-4 �. 6CRvW6 ..�_ . _._—._— . —_-..____._.-.�__._. _._.._... � � O..Q. U �. �i KITCHEN � WOMCN � ' 4b-�ow IB-fe � S7o1V.�e. 13-Vn 11 F R ER9 � � � O � MEN �/ RAN¢ q� y ' 1 NK (� � '. xRCN�N 0.W � � ampwea AC � �L' CI �� `N6t �.. � � I - � j� QPPIc4 . r(Y I _ � - �� i I� � F/J.CHINfi� �. �-. oPPICE �1 oaptCE I��' � - ,� [�_- lox 15-v -- - - - --- 1 ! � 1 . _ .. 1 � � �� l I _�� orPlce' � bl_IQb4 ua.� `C+R � � - � _ _'�O, � � � oPFIGE � � - _�.-JJ 16-li x 15-4 -- fin__ � � 1 eNi-2Y loxl� C 61 FLOOR PLAN residential compatibility than one of national preservation concern. This is not to suggest that either relationship should be ignored or disregarded. To the contrary, if the Town Hall is to be considered for the present Town site, extra measures should be mandated to prevent unwarranted and inappropriate impact and relationships. Due to the priority given the existing site, the balance of this report chapter provides an analysis of this location pursuant to objective criteria established in the preceding text. This is followed by a site plan evaluation which is pointed at a resolution of the major concerns which have been voiced. Site Selection Evaluation: As noted above, the Town has proposed to construct a new administration/meeting facility upon the existing Town Hall site. The proposed site location is illustrated on the following map. The following evaluation of the site interjects the evaluation criteria presented in a preceding section of this report. A. ACCESSIBILITY�LOCATION 1. Centralit As mentioned previously, the subject site is located north of Nashua Avenueo while the site is not geographically centrally located in a north/south sense, it is centrally located in an east/west context. As located, the existing Town Hall site does not discriminate from any particular area of the community in regard to travel distance. The Town Hall site also borders a present and projected densely populated area of Town plus is at the edge of the rural portion of the community and has long been recognized as an administratively used property. It also must be recognized that a typical preference for a centrally located facility near a community's Central Business District does not lie applicable to Otsego. Otsego truly holds no centralized business district with only sparse commercial development occurring along the Highway 101 corridor. 2. Accessibility (Immediate Access to the Town Hall would be provided by both County Road 39 and Nashua Avenue. County Road 39 is classified as a minor arterial while Nashua Avenue has been designated a collector street. In 1988, County Road 39 experienced average daily traffic volumes of 1,500. Under its minor arterial classification, the roadway has the capability to carry a volume capacity 62 �- z Z vo a � � r� N U O � � �� w W � (may' J �W �4V�Z N��(( v V � �m i�3� aU((O�� c� C) Z i � a � � � r 0 co �� /A O aW � W�� l Q W r = N N � a � S`JNIYA O �OPO M = .. �� o� � � �. ,� r .1� /' N H � � / (p � � V � `� -" � N N M N tF�55�55�PP _._. n n ��® . �.,.o �:. ^ N F'* � '3nv vnHsvN �'''� N. '3ntl VnHSVN n •• "{ 9 � �, «� w`, m 3nV NOSVW a0 s ,. a � � �, anv d,Molavw m 1 -- — t _1 � , a � '� rr� � N �;' I� t a N � � / � �- -- � % )' a XnV3B �i r� aaswN ' �' � i i a � � � l„ M a3lHVH a3lHVN N rn /'�� m a3lOVN I1/ � in � w � �� i o c o y � N N O m �' � t M N m f � � aoewvr `` a3`JIVf �3nV a3Hv;' nv avavno n N �. N NV300 N N 31tln0 w 3nv Nosavd � � � � o M n 3nV OaVNOVd 0 r 3nv a3lsnlvow O M 3nv aani ovw '3ntl NONNVI r t o (y ro t N v~i o � c n �n n n '3nV Xntl38 Vl co � N � � t 0 o � 1 3nV a3lOVN M >'�oo N n i0 OOOMNVO r%') u7 N7 P�[4 in a3lOtlN Q" � =O � � �3 1� t7 �, P N ,`o o? '3nV a30ltlr = � �Qh �' H 0J� `u N 3nv alevr n U . C N � W ",' N 30° m � �v � OQ a a 63 SITE LOCATION of up to 30,000 vehicles per day. As such, the street could accommodate additional traffic generated by a new Town Hall. While the subject site does not offer equal distance accessibility to all areas of Otsego, it does intersect with two of the Town's major traffic routes. As a minor arterial street, County Road 39 can accommodate large traffic volumes and faster speeds which offer access to the Town Hall with minimal travel time. 3. Accessibility (Long Term) Nashua Avenue which bounds the western border of the site and serves as the site's primary north/south access route is to be upgraded and receive a bituminous surface. The said upgrade is considered extremely positive in accommodating increased traffic volumes upon the roadway and having the site serve as a focal point for the entire community. B. COMPATIBILITY�IMPACT 1. Comprehensive Plan While the Town Comprehensive Plan has not been fully completed, existing land conditions appear to suggest low density single family development in the area. Such a recommendation is based primarily upon surrounding residential land uses and the property's inclusion in the Mississippi River's Wild and Scenic River District which imposes several additional requirements for such a public facility to be located within such a jurisdiction. 2. Existing Land Use The Town Hall site is bordered on its north, east, and west sides by single family development. The subject site is zoned R-2, Suburban Residential which permits low density residential development in areas that are marginal or non -feasible for agriculture. As noted previously, the site also lies within the Mississippi River's Wild and Scenic River District which holds a purpose of protecting the scenic and historical value of the river. While the site does lie in conformance with all lot area, setback, and building coverage requirements set forth within the Wild and Scenic District, it fails to meet preferred impervious surface coverage requirements of 30 percent. Such a situation can, however, be overcome in the future by the removal of the public works facility plus addition of land to the east. The proposed Town Hall facility does appear appropriate to the subject site for a number of reasons. First, the site currently holds a public service use which has existed long before the construction of proximate residences. As such, construction of a new Town Hall shall not significantly change an existing condition. Secondly, the Town's long range objectives and plans include a provision for the eventual phasing out of the site's public works activities. This is considered extremely positive in that it is the public works facility, not the Town Hall, which produces the most notable negative impacts to the area (i.e., outdoor storage, truck traffic, etc.). In place of the public works building, consideration has been given to providing a passive park plus open space to further lessen compatibility concerns. The Town is also making efforts to improve the property and enhance its compatibility with the objectives of the Wild and Scenic River designation. Such efforts include a buffering of neighboring residences via landscaping, a limitation of access, and extensive reforestation efforts and improved storm drainage control for enhanced water quality and regulated runoff. From the perspective of the Wild and Scenic River area, these improvements offer an enhancement of stated objectives for such areas beyond which would otherwise be accomplished. An additional factor which needs to be considered is the site's R-2, Suburban Residential zoning designation. While the Town Hall facility is not considered a permitted use within the district, similar uses such as churches, community centers, fire and police stations are allowed as conditional uses. Generally, the Town Hall functions cannot be considered dissimilar from these types of activities and in fact may be broadly interpreted as a community center. In addition, office operations have been shown to have a high degree of compatibility with residential uses and can promote highly natural settings.. 65 3. Visual/Aesthetics, Adjacency to County Road 39 and Nashua Avenue make the Town Hall site both highly visible and accessible to the public. The structure itself should be located and designed in a manner which promotes a positive expression of the Town and create a source of community pride. The Town Hall should also be designed in a manner which takes advantage of desirable views and retains, to the extent possible, all existing on -site vegetation. 4. Supportive Services A portion of a Town Hall is devoted to an office activity land use and people working there ideally need supportive services. With the majority of the site's adjacent lands infilled with single family development, little opportunity for support services is available. It should be noted, however, that the Town Hall has to date existed in relative isolation without incurring any major functional problems. As such, historical example finds the relative isolation of the Town Hall facility to be generally acceptable. Moreover, internal features of the facility can serve to eliminate problems in this regard. C. PHYSICAL 1. Land Area The present 3.2 acre Town Hall site exceeds the minimum area of 2.4 acres which was identified in the beginning of this report as necessary to accommodate the building and support space which has been proposed for the Town. In recognition of buffering requirements, as well as achieving an open and natural area as projected by the Wild and Scenic River designation which impacts the site, a threshold of 70 percent open green area has been established. As a result, this poses an ultimate site need of 3.7 acres again to accommodate present building plans. The exhibit on the following page depicts the size and configuration of the present Town site as well as a recently acquired 2.3 acres of land which the Board envisions as possibly being eventually combined with current land holdings to create and achieve the character of the area which is desired. To accomplish this end, a 1.7 acre parcel plus undeveloped right-of-way will also have to be purchased. This will produce a combined site of 7.4 acres which is far in excess of a 70 percent shoreland open space standard. If all or a portion of this extra land is retained, its possible use as a park has been suggested. dIHSa3NM0 l�la3dOad NMOl _� _ O m „-- -- �', ..� ti - 0 a - �- - C I A J. � 1 D w .i- IIV N A �. i w � n L9 5I'. � y.. � � ..�.. -i I � p � 1 /� , . W �..��,, � U � / 1 f-3 n ✓ (p.�, NASNUA ST. S T. � • �J � ��T ..�' o � � avE.) � ST. 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