HomeMy WebLinkAboutMetro Red Line Study Nov 2013METRO RED LINE
Cedar Avenue Bus Rapid Transit (BRT)
Market & Development Study
NOVEMBER 2013
METROPOLITAN
c 0 U N GI L
METRO RED LINE Market & Development Study
NOVEMBER 2013
Project Partners
City of Apple Valley
City of Bloomington
City of Eagan
City of Lakeville
Dakota County
Dakota County CDA
Hennepin County
Study Funded by:
This study was funded by a grant from the
Metropolitan Council through the Corridors
of Opportunity initiative.
Corridors of
Opportunity
Peooe Piare5 and P tY
Study Prepared by:
Kimley-Horn and Associates, Inc.
Hoisington Koegler Group, Inc.
W-ZHA, LLC
Northland Securities
TABLE OF CONTENTS
Table of Contents
Acknowledgements
Executive Summary
1.0 Introduction
1.1 Purpose of Study
1.1.1 Study Area
1.2 Study Process
iv
v
1
1
2
6
1.2.1 Project Management Team 7
1.2.2 Public Open Houses 8
1.2.3 Business, Developer, and Foundation Meetings 9
1.2.4 Outreach to Underrepresented and Underserved Communities 9
1.3 Use and Organization of Document 10
2.0 Corridor -Wide Investment Strategies 11
2.1 Market Potential 11
2.2 Assets 11
2.3 Challenges 13
2.4 General Strategies 16
2.5 Financial Strategies — New Tools 17
3.0 Station Area Investment Strategies 20
3.1 Bloomington: Mall of America Transit Station 20
3.1.1 Assets 20
3.1.2 Challenges 21
3.1.3 Development Typology 22
3.1.4 General Strategies 23
3.1.5 Action Plan 23
3.2 Eagan: Cedar Grove Transit Station 27
3.2.1 Assets 27
3.2.2 Challenges 29
3.2.3 Development Typology 29
3.2.4 General Strategies 30
3.2.5 Action Plan 30
3.3 Apple Valley: 140th Street Transit Station 33
3.3.1 Assets 33
3.3.2 Challenges 33
3.3.3 Development Typology 34
ii November 2013 METRO RED LINE Market & Development Study
3.3.4 General Strategies 34
3.3.5 Action Plan 34
3.4 Apple Valley: 147th Street Transit Station 37
3.4.1 Assets 37
3.4.2 Challenges 37
3.4.3 Development Typology 38
3.4.4 General Strategies 39
3.4.5 Action Plan 39
3.5 Apple Valley: Apple Valley Transit Station (155th Street) 43
3.5.1 Assets 43
3.5.2 Challenges 43
3.5.3 Development Typology 44
3.5.4 General Strategies 44
3.5.5 Action Plan 45
3.6 Lakeville: Lakeville Transit Station (181st Street) 49
3.6.1 Assets 49
3.6.2 Challenges 49
3.6.3 Development Typology 50
3.6.4 General Strategies 50
3.6.5 Action Plan 51
4.0 Appendices
Appendix A - Summary of Previous Plans A
Appendix B - Summary of Market Potential B
Appendix C - Financial Toolbox for Development and Redevelopment C
Appendix D - Public Involvement Plan D
Appendix E - Public Involvement Materials E
METRO RED LINE Market & Development Study November 2013 iii
ACKNOWLEDGEMENTS
The Metro Red Line Market and Development Study was a collaborative effort directed by a Project Management
Team (PMT) comprised of representatives from the Red Line cities and counties. The study process included PMT
meetings, public open houses, stakeholder interviews, and targeted meetings with underrepresented and underserved
communities.
The study was funded through a grant from the Metropolitan Council via the Corridors of Opportunity initiative to the
City of Apple Valley on behalf of the Red Line communities.
The work that provided the basis for this publication was supported by funding under an award with the U.S. Department
of Housing and Urban Development. The substance and findings of the work are dedicated to the public. The author
and publisher are solely responsible for the accuracy of the statements and interpretations contained in this publication.
Such interpretations do not necessarily reflect the views of the Government.
PROJECT MANAGEMENT TEAM
DAKOTA COUNTY
Joe Morneau*
Kurt Chatfield
John Mertens
DAKOTA COUNTY CDA
Andrea Brennan
Lisa Henning
HENNEPIN COUNTY
Patrick Connoy
CITY OF BLOOMINGTON
Julie Farnham
CITY OF EAGAN
Jon Hohenstein
Pam Dudziak
CITY OF APPLE VALLEY
Kathy Bodmer*
Bruce Nordquist
CITY OF LAKEVILLE
Dave Olson
Allyn Kuennen
*primary points of contact
CONSULTANT TEAM
KIMLEY -HORN AND ASSOCIATES, INC.
HOISINGTON KOEGLER GROUP, INC.
W -ZHA, LLC
NORTHLAND SECURITIES
iv November 2013 METRO RED LINE Market & Development Study
EXECUTIVE SUMMARY
METRO Red Line bus rapid transit (BRT) service began operating in June 2013 with five stations and now connects the
cities of Apple Valley, Eagan, and Bloomington with high- frequency, all -day transit service in both directions along
Cedar Avenue. Future phases are planned to extend service to Lakeville and add infill stations in areas with existing
Red Line service, for a total of 12 stations.
During 2013, the City of Apple Valley and Dakota County, in partnership with the other corridor cities and Hennepin
County, conducted the Red Line Market and Development Study with two primary purposes in mind:
• Understand the impact of BRT, in general, and the new Red Line BRT on future development in the station
areas of the corridor communities, and
• Identify strategies to promote transit - oriented development (TOD) at the five existing and one future Red
Line station areas in the study.
The six BRT stations studied as a part of this project are:
• Mall of America (MOA) Transit Center in Bloomington
• Cedar Grove Transit Station in Eagan
• 140th Street, 147th Street, and 155th Street stations in Apple Valley
• 181st Street station in Lakeville
The study was funded by a grant from the Metropolitan Council through the Corridors of Opportunity initiative. The
stakeholder engagement process included small group conversations with businesses, developer, foundations, and
members of historically underserved or underrepresented communities. These interactions served to underscore the
immediate value of the new transit service in providing access and mobility within Dakota County and the broader
metropolitan area, including for people who depend on transit to meet their transportation needs.
Key study findings are as follows:
• The Red Line BRT can significantly enhance a potential development site's competitive position. The new
high quality BRT service and investment in the stations provide an important asset for the communities
along the Cedar Avenue corridor. While new development and redevelopment of the areas around the
stations will continue to evolve, the investments that have been made in the Red Line demonstrate the
communities' commitment to the success of the first BRT line in the region.
• Each Red Line station area is unique, as is each Red Line community. The form, character, and potential
for development at each station area will also vary. Preserving flexibility for future development will be
important as the market for TOD in these suburban communities evolves over time.
• New and modified public finance tools are needed to better support TOD. While there is a market for TOD, it
is typically more expensive and more difficult than conventional development. Changes to finance tools will
help make TOD more attractive to developers and hence more viable in more locations.
• The planning and construction of the Red Line resulted from a successful regional partnership of entities
along the corridor. The corridor cities and counties could benefit substantially from a similarly concerted
effort to create and maintain a development and branding strategy for new development, and TOD in
particular, along the Red Line.
METRO RED LINE Market & Development Study November 2013 v
PEDESTRIAN
TRAFFIC
1.0 INTRODUCTION
1.1 PURPOSE OF STUDY
Dakota County and Metro Transit launched the Red Line in June 2013 as the
region's first bus rapid transit (BRT) corridor.The initial phase of the Red Line
extends 11 miles from the Mall of America in Bloomington south through
Eagan and Apple Valley. This phase includes five stations, including both
walk -up and park- and -ride facilities, that are connected with the METRO
Blue Line (Hiawatha Light Rail Transit) at the Mall of America Transit Center.
Future phases are planned to extend service to Lakeville and add infill
stations in areas with existing Red Line service, for a total of 12 stations.
Initial ridership on the Red Line is consistent with forecasts.
The Red Line Market and Development Study identifies strategies to
promote BRT as a development and redevelopment catalyst in station areas
with varying levels of development intensity along the transitway. The
study has four objectives:
• Continue to develop the vision for transit oriented development (TOD)
in the Red Line station areas.
• Identify existing and potential future market and development
conditions for TOD in each of the station areas.
• Identify challenges that developers, lenders, and local landowners
face in developing TOD projects along the Cedar Avenue corridor, and
develop solutions to overcome these challenges.
• Create action plans for each station area. These plans will identify
preferred land uses, development preferences, station area
enhancements, and funding opportunities for each station area.
METRO RED LINE Market & Development Study
What is the Red Line?
140t" Street
Station
147t" Street Station
Apple Valley
Transit Station
(155t" Street) . 161St Street
*-# Station
Glacier Way
Station
St
bw: 181 Street ,
Station
Cedar Grove
Transit Station
Cliff Road
Station
215t" Street
j Station
November 2013 1
2 November 2013
1.1.1 STUDY AREA
The study area for the Red Line Market and Development Study extends
12.8 miles between Bloomington and Lakeville along Cedar Avenue. It
includes the five current stations that opened as part of Phase 1 as well
as the 181st Street Station in Lakeville that is part of a future phase. Each
station has a unique context based on existing development— ranging
from a relatively high intensity suburban center at the Mall of America to
the mostly undeveloped area surrounding 181st Street in Lakeville. TOD at
each station will therefore take on a slightly different form and each station
requires unique strategies to achieve the vision for the corridor.
1,6 The concept for the Red Line initially emerged from an alternatives analysis
process, led by the Dakota County Regional Railroad Authority. In a follow -up
study, the Cedar Avenue Transitway Implementation Plan established three
stages for the completion of the project. Stage One implemented station -
to- station service from Apple Valley to Bloomington, and opened on June
22nd, 2013. Stage Two will augment Stage One service and facilities, while
Stage Three will expand and improve station -to- station service, facilities,
and fleet.
What is Bus Rapid Transit?
The Red Line is the first bus rapid transit (BRT) service in the region. BRT uses buses but incorporates many of the
features of light rail:
• Service: high frequency all -day schedules with limited stops
• Transitway: dedicated running ways where possible
• Vehicles: modern, specialized vehicles with wide doors and low floors
• Stations: station platforms for faster boarding and more amenities than local bus stops
• Technology: traffic signal priority and electronic rider information on -board and at stations
• Fare Collection: off -board or fast fare collection to speed boarding times
• Branding: unique branding to distinguish service from local bus service
The Red Line BRT service operates primarily on limited access roadways, which is an example of highway BRT. In
general, highway BRT provides reliable service by taking advantage of managed lanes, bus -only shoulders, ramp
meter bypasses, and queue jumps to avoid traffic congestion. In 2015, Metro Transit will launch the region's first
arterial BRT line along Snelling Avenue and Ford Parkway. Arterial BRT shares many features with highway BRT but
functions similarly to a local bus.
METRO RED LINE Market & Development Study
Study Area Map
ransit Station
155ths Street)
dse
Half -mile radius
station areas
METRO RED LINE Market & Development Study
What is Transit Oriented
Development?
Transit - oriented development,
or TOD, is a type of community
development that typically includes a
mixture of housing, office, retail, and/
or other commercial development and
amenities integrated into a walkable
neighborhood located within a half -mile
of high quality public transportation.
Some of the benefits ofTOD include:
• Reduced household driving and
thus lowered regional congestion,
air pollution, and greenhouse gas
emissions
• Walkable communities that
accommodate more healthy, active,
and convenient lifestyles
• Increased transit ridership and fare
revenue
• Potential for added economic
value created through increased or
sustained property values
• Improved access to jobs and
economic opportunity for low -
wealth communities and working
families
• Expanded mobility choices
that reduce dependence on the
automobile, reduce transportation
costs and free up household income
for other purposes
(Source: www.reconnectingamerica.org)
While guided by the principles above,
TOD is not a one - size - fits -all concept.
As a result, the Red Line Market and
Development Study introduces
development typologies that illustrate
alternative possibilities for TOD in
different contexts, including suburban.
The typologies establish a framework
to help guide TOD within the specific
context of each station, while allowing
for flexibility as this new form of
development evolves in the Twin Cities
metro.
November 2013 3
What are development typologies?
Recommended development typologies were developed to help provide a high level guide to and description of the
type and character of development in each station area, especially in relation to other station areas. The typologies
provide a general understanding of preferred land uses, development intensities, and housing mix tailored to each
location. Transit stations as local and regional economic drivers require at least a basic focus on placemaking to
balance the ridership goals of the system with the livability goals of the community. Connectivity and walkability
near the station area play a role in the perception of place associated with transit stations. Other guidelines typical
forTOD include:
• Higher relative density at station areas
• Higher level of connectivity and accessibility for pedestrians and bicyclists
• Consideration for how the various modes interact (e.g. bicycle storage, car sharing, etc.)
• Construction and ongoing maintenance of facilities supportive of transit needs
Given the differences among the stations within the study corridor, certain guidelines have more relevance at
some station areas than others. Likewise, the guidelines that encompass the typology framework fall within three
categories: land use mix and density; general characteristics of such activity center types (economic, cultural,
residential); and housing mix.
Additional characteristics with specific measurable goals, such as non - residential floor area ratios and residential
densities can be developed to provide more specific guidance.
Five typologies were identified that apply to the six station areas considered in the study. The current conditions
at the station areas were less important than the future plan for the areas. Each station was assigned a typology
based on aspirational characteristics for the future. In some cases, these aspirations differ significantly from current
conditions, while other station areas are more in line with their aspirational buildout.
TYPOLOGIES
Suburban Center
Land -Use Mix
and Density
Characteristics
Housing Mix
High- density mix of
residential, commercial,
employment, and civic/
cultural uses
Moderate- to high- density
mix of residential, commercial,
I employment, and civic/
cultural uses
7
Primary center of economic High -rise and mid -rise
and cultural activity apartments and condos
Significant center of economic
and cultural activity with
regional -scale destinations
Mid -rise, low -rise, townhomes,
and some high -rise
Moderate density mix of
residential, community,
employment and civic/
cultural uses
Local center of economic and
community activity
Mid -rise, low -rise, and
townhomes
Low- to moderate - density
residential uses with
supporting commercial and
employment uses
Capture station for in -bound
commuters with large park
and ride, primarily residential
with local and commuter -
serving commercial
■l
Low -rise, townhomes, small -
lot single family, and some
mid -rise
1
Low- to moderate - density
residential uses with
supporting commercial and
employment uses
Predominantly residential Low -rise, townhomes, small -
district with a neighborhood lot single family, and some
walk -up transit station
mid -rise
4 November 2013
METRO RED LINE Market & Development Study
Why is a TOD study needed?
The Metro Red Line introduces a new kind of transit connection to
the cities of Apple Valley, Bloomington, Eagan, and Lakeville. It also
introduces new development opportunities, the extent of which are still
emerging. Because BRT is a new to the region, there is a learning curve
among riders, cities, property owners, and developers.
The purpose of this study is to help each of the Red Line communities
make the most of the positive change that BRT will bring with respect
to development potential in the station areas.
Attracting TOD is often a point of discussion in locations where it
does not happen easily or naturally as a result of market forces. While
some TOD may happen in the Red Line station areas without special
consideration, an underlying assumption of this study is that TOD is
desirable in the station areas and that focused planning and financing
efforts will typically be required to enable or encourage it.
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Apple Valley pedestrian and trail access to BRT
Station
1.2 STUDY PROCESS
Early in the study process, the Project Management Team (PMT) recognized
that success of the study will be tied directly to an inclusive process of
community involvement. The underlying principle for understanding
station area dynamics was collaborative planning and consensus building
through stakeholder coordination. Stakeholder coordination was carried
out through four means:
• Project Management Team (PMT)
• Public Open Houses
• Business, Developer, and Foundation Meetings
• Outreach to Underrepresented and Underserved Communities
Stakeholder involvement was blended throughout a study process that
included the following tasks:
• Corridor and Station Area Character: This task established the
character of the Red Line corridor as a whole as well as the six stations
to set the context for future TOD. The task included a review of
previous studies and an analysis of existing and planned elements
(infrastructure, parks and natural areas, historic features, and
regionally significant attractions). The character of each station was
illustrated in a series of exhibits presented to the public, as provided in
Appendix A.
• Market Potential: This task evaluated the outlook and key factors
shaping the potential implementation of TOD around the six stations.
Previous relevant market studies were summarized in the context of
recent developments and other changes. The market potential task
also included interviews with developers and a review of literature
addressing BRT - related development and consideration of TOD
and other similar forms of development in the Twin Cities. Based on
this information, an outlook for potential TOD development in the
Red Line corridor was developed, along with a summary of the key
factors that can enable the corridor communities to achieve such
development. See Appendix B for the Market Analysis.
6 November 2013 METRO RED LINE Market & Development Study
1.2.1 PROJECT MANAGEMENT TEAM (PMT)
Project activities were coordinated with and reviewed by the PMT, which
included staff from the cities and counties in the project area. The PMT met
monthly to review and comment on project deliverables. A critical role of the
PMT was to help identify stakeholders and develop a list of potential project
participants. PMT members also informed their respective jurisdictions
on project activities and collected input from their boards and councils to
report back to the PMT.
To work collaboratively on strategies and recommendations, the PMT
and consultant team gathered for a work session April 10 -12, 2013.
The work session provided an opportunity for participants to provide
specialized insight and identify the major issues facing each station area
in a collaborative environment. The team relied on stakeholder input along
with staff and professional knowledge to help develop a vision and path to
implementation of TOD at each of the station areas. The approach focused
on strengths, barriers, strategies, and solutions for the corridor as a whole
as well as each station area. The work session concluded with discussions of
how to leverage potential public and private funding sources forTOD within
the corridor. The process provided participants with a clear understanding
of the challenges and opportunities within the corridor, as well as strategies
for pursuing TOD goals, both independently and in cooperation with other
cities along the corridor. The outcome guided the development of the
strategies presented in this report.
• Station Area Investment Strategies: Based on the station area
character maps and the market potential analysis, the study identified
potential public and private investment strategies for each station
area to leverage the development benefits of the Red Line. These
strategies considered the challenges facing local staff, developers,
lenders, and landowners with respect to financing and developing
projects around Red Line stations. Investment strategies included
consideration of both corridor -wide and station area specific
recommendations. The investment strategies form the core of the
report that follows.
METRO RED LINE Market & Development Study
November 2013 7
Key Comments
• Provide access to affordable
housing
• Create connections to other
transit lines
• Enhance bicycle and pedestrian
connections
• Promote small businesses
8 November 2013
1.2.2 PUBLIC OPEN HOUSES
A public involvement process was developed to engage interested
stakeholders, such as residents, business owners, and property owners, in
an open forum and gather useful input for the project. At two public open
houses, the public helped shape the process and lay the groundwork for
future study and development within the corridor.
Open House #1 April 3, 2013
The first Open House for the Red Line Market and Development Study was
held Wednesday, April 3, 2013, at the Dakota County Western Service Center.
The project team shared background material and gathered feedback on
the process to date. Following an Open House format, information was
presented in a series of boards and handouts. Attendees also participated
in two voting exercises:
• After reviewing general information related to the general density,
land use, and expected typical users described by each station area
typology, attendees were asked to express their preference for a
particular typology at one or more station areas using color -coded
stickers.
• Attendees also were asked to identify their preferred TOD
characteristics for each station area by choosing their top priority
and two additional secondary priorities. Attendees picked from a list
of nine options: mix of complementary transit- oriented land uses;
higher intensity development; building and site design; opportunities
for affordable and accessible living; street network connectivity;
pedestrian and bike connectivity; design streets for all users; effective
parking management; and great public parks and open spaces.
For more information on Open House #1, please refer to Appendix E.
Open House #2— August 14, 2013
A second Open House was held on Wednesday, August 14, 2013 from 4:00
to 6:00 p.m. at the Apple Valley Transit Station. Given the audience of transit
passengers that were likely not in attendance at the initial Open House,
there was a need to share background material and project information
prior to introducing the draft concepts and gathering feedback. Boards
were therefore provided to describe the project timeline, purpose, and
stakeholders, introduce the Red Line, and summarize the findings of the
Market Study. The remaining boards outlined the proposed corridor -wide
strategies and provided preliminaryconcept sketches and recommendations
for each station area. Verbal feedback and a 5 question survey (handed out
on site as well as linked online) served as the primary channels for gathering
feedback. Common suggestions included:
• Provide safe, convenient, walk -up access to stations
• Improve Cedar Avenue crossings
• Encourage small retail and /or coffee shops to locate in station areas
to serve riders
For more information on Open House #2, please refer to Appendix E.
METRO RED LINE Market & Development Study
1.23 BUSINESS, DEVELOPER, AND FOUNDATION
MEETINGS
For specialized attention to specific matters affecting parties with a range
interests in one or more station areas, the PMT identified select business,
developer, and foundation representatives for one -on -one discussions.
These conversations provided insight into challenges and opportunities
associated with the policyframeworkand existing and planned infrastructure
along the corridor. Feedback gathered through these conversations helped
validate the initial results from the corridor and station area character
development and the market evaluation. Stakeholders included Blue Cross
Blue Shield of Minnesota, Central Corridor Funder's Collaborative, the Mall
of America, the McKnight Foundation, and McGough, a development and
construction company. For more information on these meetings, please
refer to Appendix E.
The market study also included discussions with developers. The results of
these discussions inform the conclusions in Section 2.1 and are provided in
Appendix B.
1.2.4 OUTREACH TO UNDERREPRESENTED AND
UNDERSERVED COMMUNITIES
One goal of the study was to conduct a public involvement process
consistent with the mission and goals of the Corridors of Opportunity
(Co0) initiative — specifically engaging traditionally underrepresented and
underserved stakeholders. Coo targets four populations: new immigrants,
communities of color, low- income persons, and persons with disabilities.
The consultant team coordinated with Coo and Dakota County Community
Development Association to focus this outreach on the issue of transit
access to jobs and affordable housing. In May 2013, members of the project
team met with La Asamblea de Derechos- Civiles, an organization that
brings together immigrants from predominantly Latino faith congregations
to engage in community issues. This contact resulted in subsequent
communications regarding the progress of the study and opportunities for
input. In July 2013, the project team met with employees and residents of
underrepresented and underserved communities in Eagan (Lincoln Place)
and Apple Valley (Cortland Square). Attendees noted the need for improved
access to information regarding transit service, improved connections
to stations, and enhanced safety. Attendees also noted the types of
development and passenger amenities needed in station areas.
For more information on outreach to underrepresented and underserved
communities, please refer to Appendix E.
Key Comments
• Improve pedestrian environment
• Build more sidewalks and trails
• Consider neighborhood scale
development
• Encourage grocery and shopping
uses
• Add clear wayfinding
• Promote affordable housing
METRO RED LINE Market & Development Study November 2013 9
1.3 USE AND ORGANIZATION OF
DOCUMENT
Each station area along the Red Line is in a different stage of TOD readiness
and subsequently has different steps to move forward (see graphic). For
this reason, the following chapters consider the strengths and challenges
of each station separately. Because many themes are consistent along the
corridor, and continued coordination on multiple corridor -wide strategies
will help individual stations fulfill their goals for TOD, the document begins
with a discussion of the approach for the corridor as a whole.The subsequent
discussion of each station includes an assessment of assets and challenges,
a summary of the preferred development typology, and a description of
strategies to maximize TOD within the context of the individual station.
While this report is intended to serve as a concise reference document for
both collaborative initiatives and individual station area strategies, it is
supported by a detailed Appendix that documents the steps in the process
leading to the strategies and recommendations:
• Appendix A: Summary of Previous Work
• Appendix B: Summary of Market Potential
• Appendix C: Financial Toolbox for Development and Redevelopment
• Appendix D: Public Involvement Plan
• Appendix E: Public Involvement Materials
10 November 2013 METRO RED LINE Market & Development Study
2.0 CORRIDOR -WIDE
INVESTMENT STRATEGIES
2.1 MARKET POTENTIAL
While many of the strategies to promote transit - oriented development
(TOD) are specific to the unique conditions of each station area, the market
and identity of the corridor as a whole are key to understanding and
promoting TOD opportunities in the individual station areas.
The understanding of market potential emerged through a multi -step process
that involved meetings with the Project Management Team, discussions
with developers and other stakeholders, consideration of previous plans
and studies, an assessment of existing conditions, and a review of relevant
literature. A framing concept was, "Why should a developer invest in the Red
Line corridor ?" In summary, the review of market potential for TOD along
the Red Line yielded the following conclusions:
• The Red Line stations can attract substantial TOD development over
time to the extent that the stations can provide competitive locations
to serve market demand.
• While BRT may not drive development, it can significantly enhance a
site's competitive position within the market when coordinated with
other advantages.
Competition with alternative development locations is the most significant
challenge facing TOD around the Red Line stations. The desire for TOD may
not materialize at all station areas in the same way or on the same timeline.
For these reasons, the strategies presented here are organized with general
corridor -wide strategies first, followed by a more detailed assessment of
individual stations. For more information on the market potential, please
refer to the Summary of Market Potential in Appendix B.
2.2 ASSETS
The ability to promote TOD along the Red Line is based on a range of
assets, some of which are unique to the corridor. Cedar Avenue is a major
regional transportation corridor that links the cities of Eagan, Apple Valley,
and Lakeville across the Minnesota River to Bloomington and the region's
urban core.The Cedar Avenue corridor is centrally located to provide access
Building upon the significant investment in the
METRO Red Line BRT service and stations, the
communities are looking to better understand the
market potential for TOD in the individual station
areas .
METRO RED LINE Market & Development Study
November 2013 11
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Intercity Passenger Rail Priorities
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To St. Cloud; Fargo
1�1
To Mankato
1
Miles
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To Duluth
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To Rochester;
Chicago
Amended May
12 November 2013
to Minneapolis, St. Paul, and Bloomington employment centers as well
other destinations north of the river such as the Mall of America (MOA) and
Minneapolis -St. Paul International Airport.
The Red Line is well integrated with the regional transit system:
• The Red Line connects with the Blue Line light rail at the MOA Transit
Station and the 28th Avenue Transit Station.
• The MOA Transit Station is the busiest transit station in the state,
served by light rail, BRT, and more than a dozen local bus routes.
• The 155th Street and Cedar Grove stations provide peak hour express
bus service to downtown Minneapolis, downtown St. Paul, and the
University of Minnesota.
• The Red Line enhances connections with employment and
entertainment in downtown Minneapolis by providing consistent
non -peak service.
• Red Line stations in Eagan and Apple Valley are served by local transit
routes that connect the stations to other destinations including the
Minnesota Zoo and Burnsville Center.
• The established local and express transit ridership in the corridor is
significant and will also support TOD in the station areas.
METRO RED LINE Market & Development Study
With its all -day frequent service in both directions, the Red Line represents
a significant enhancement of the connection between employment and
workers for the corridor. BRT provides transit access to employment in
Bloomington (and other I -494 corridor cities) that existing express bus service
currently bypasses. The Red Line also provides viable reverse commute
service, connecting workers living north of the River with employment in
Eagan, Apple Valley and Lakeville (as the service is extended).
Other major assets of the Cedar Avenue corridor include:
• Employment Centers: MOA, Bloomington South Loop District,
Downtown Apple Valley, future Paragon Outlets Twin Cities at Eagan
• Shopping /Entertainment Destinations: MOA, future Paragon
Outlets Twin Cities at Eagan, Minnesota Zoo, Downtown Apple Valley
• Recreation: Minnesota River Valley National Wildlife Refuge, Fort
Snelling State Park, Lebanon Hills Regional Park
• Government Services Centers: Apple Valley Municipal Center,
Dakota County Western Service Center, Dakota County Library
2.3 CHALLENGES
The Blue Line LRT on Hiawatha Avenue has demonstrated that light rail
transit (LRT) is a convenient and reliable form of transportation. BRT has not
had the opportunity to show the same result, and its ability to promote TOD
faces certain challenges. While some challenges are unique to individual
station areas, other challenges exist throughout the study corridor. Based
on a combination of team discussions, stakeholder input, and literature
review, the following corridor -wide challenges were identified:
• Learning Curve: As the first BRT service in the region and one of
a limited, but growing, number of BRT lines in the nation, the Red
Line is not yet well understood. Although BRT shares many of the
enhanced rider features with LRT, BRT has not yet had the opportunity
to demonstrate the same rider acceptance. Likewise, many people
do not fully understand the difference between BRT and traditional
bus service. The relative value of BRT service in relation to LRT as
an amenity for development is not yet clear, and the development
community does not yet appear to attribute BRT service as a
significant influence on more traditional site selection criteria.
• Sense of Impermanence: BRT often is not perceived as having the
same level of permanence as a fixed line, e.g. LRT. Initially, some
stakeholders may be hesitant to make long -term investments around
the BRT line. This perception increases the importance of actions that
demonstrate ongoing and long -term support for the BRT system. As
the BRT becomes more established, these concerns will be diminished.
• Developed Areas around Stations: All six stations considered in
this study (with the exception of Lakeville) are located in already
developed environments, which will require future TOD to occur
primarily through the redevelopment of existing property. Access to
BRT service is just one element of viable redevelopment. Current plans,
regulations, and development tools governing the station areas are
also important to attracting TOD.
The Mall of America is a major destination and
asset of the Red Line corridor, including the MOA
Transit Center.
Downtown Apple Valley is a major commercial
center and asset along the corridor.
METRO RED LINE Market & Development Study November 2013 13
Today the station areas are predominantly
auto - oriented with low density development
separated by surface parking lots and limited
walk /bike facilities.
• Auto - Oriented Context: While most of the stations have moderate
to good bicycle and pedestrian connectivity, the broader context of
the station areas is auto - oriented. The multi -lane high volume Cedar
Avenue bisects the walkable area to the BRT stations and creates
an environment that is not necessarily conducive to walking and
bicycling.
• Market Competition: In the Twin Cities metro area, there are more
potential TOD or mixed -use sites available than there are developers
seeking these types of development opportunities. While the Red
Line stations may not be directly competing for development with
more urban higher intensity LRT station areas (Central Corridor, for
example), they can be expected to compete with other planned mixed -
use districts in similar geographic contexts around the region. Also,
TOD in outer suburban settings is a new development model in the
Twin Cities metro.
• Finance Hurdles: TOD projects likely will require financial
investments from cities. The need for financial participation comes
from several factors. Many station area development sites require
redevelopment. The costs of site assembly and removal of existing
structures adds to the cost of development. Structured parking
increases the cost of development. The study process has identified
potential infrastructure projects for each station area. It is not likely
that all of these costs will be borne by private development.
Challenges with Existing Finance Tools
It is IikelythatTOD projects will require financial investments from cities.The
study process has identified a variety of potential infrastructure projects at
each station area. Cities may need to partner with developers to incorporate
transit oriented development principles, remove redevelopment barriers
and make development financially feasible. Financial incentives may be
needed to encourage development to occur around station areas rather
than other easier to develop locations. Although State Law gives cities a
wide range of useful finance tools, these tools are often not well- suited to
the needs of transit oriented development. The following identifies some of
the key challenges with existing finance tools.
• Special assessments are designed for improvements that benefit
affected /adjacent properties. While existing uses may derive
benefit from proposed infrastructure, the underlying objective is to
encourage future TOD development. Some necessary improvements
(pedestrian crossings) do not directly relate to specific properties.
Some infrastructure investments may need to occur prior to actual
TOD projects. Current State Law does not allow assessments to be
deferred in a redevelopment setting. Reducing the amount assessed
and deferring assessments requires the city to provide other funds to
make up the difference.
• A special service district allows improvement (and enhanced
service) costs to be spread over a specified area. Currently, only
commercial property can be "taxed' to pay for improvements (and
services) in a special service district. TOD seeks an environment with a
mixture of residential and nonresidential uses.
14 November 2013 METRO RED LINE Market & Development Study
• Tax abatement powers provide a means to fund station area
infrastructure. Without an offsetting increase in property values, a
tax abatement levy may increase overall taxes. Property cannot be
used for both tax abatement and tax increment financing. TIF may be
needed for parcel specific development needs.
• Tax increment financing (TIF) captures the property value from new
development and uses the revenue to pay for activities needed for
the development to occur. Existing TIF statutes contain a variety of
impediments to use on TOD projects:
»
Vacant land is present at key locations around station areas. Vacant
land does not qualify for any form of tax increment financing except
for affordable housing and certain types of industrial development.
Redevelopment and renewal /renovation districts require the
presence of structurally substandard (blighted) buildings. Current
buildings in the station area may represent an underutilization of
property or may be economically obsolete, but these conditions do
not qualify for a TIF district.
Current TIF authority does not allow tax increments to be used for
public parks and plazas.
Only a limited amount of tax increment can be spent outside
of the boundaries of the TIF district (pooling). Many critical TOD
infrastructure improvements (sidewalks, trails, pedestrian crossings,
bike lanes) may occur over a broad area outside of the TIF district.
Timing may be problematic. Some public actions (pedestrian
connections, site assembly) may need to precede TOD projects. Tax
increments can only be used to pay for activities undertaken after
creation of the district. Creating the district starts a five -year period
for obligating the use of tax increments in the district.
2.4 GENERAL STRATEGIES
Building upon the corridor -wide assets and addressing the key challenges,
a series of general strategies are recommended to encourage TOD along
the Red Line. The four general strategies are supplemented with specific
recommendations to be applied directly along the corridor or incorporated
into the individual station area implementation plans that follow.
Strive to make BRT in the Red Line Corridor successful. The success of
BRT — the transit service itself - is critical to future TOD. Increasing use of
the service creates an asset that can attract development. Strong ridership
and active community support demonstrates a long -term commitment to
sustaining BRT as a focal point for future development.
• Clearly define and aggressively market the benefits and features of
BRT service.
• Implement strategies to make crossing Cedar Avenue safer and more
pleasant for pedestrians and bicyclists.
• Create incentives to encourage transit and bike use such as free or
reduced transit passes, car sharing programs, bike sharing programs,
and convenient and secure bike storage within transit station areas.
METRO RED LINE Market & Development Study
Successful communication and marketing of
the high quality BRT services should be a critical
corridor -wide strategy.
November 2013 15
Future TOD should integrate the BRT
stations into the area's street and building
patterns with pedestrian- and bike - friendly
connections.
Redevelopment projects should consider
opportunities for mixed -use buildings,
improved parking management, and
pedestrian- oriented streets .
Define and market the development assets of the Red Line Corridor.
BRT is an important and unique amenity to a corridor already rich with
development assets. Given the initial challenges facing BRT and competition
for development from elsewhere in the region, it will be important to define
and market the development opportunities for the Red Line. A proactive
approach will allow cities along the corridor to educate and inform potential
development partners.
• Integrate stations into the surrounding area's streets, trails, buildings,
and open spaces.
• Identify priority development and redevelopment sites for medium
and high density housing and guide housing to these areas.
• Mix affordable housing units into market rate housing or mixed use in
the station areas.
• Where feasible, encourage retail or service uses at street level and
design residential uses at street -level so it contributes to a desirable
pedestrian environment.
Undertake collaborative initiatives. The success of BRT and TOD along the
Red Line should be viewed corridor -wide, rather than at each station area.
TOD at any station has the potential to benefit other cities. Employment
around MOA supports residential development at other stations. Conversely,
the Red Line provides the ability for residents in the South Loop to travel
to jobs in Lakeville, Eagan, and Apple Valley. A small group meeting with
residents in the Cedar Grove area showed that BRT is used to access goods
and services in Apple Valley. These interrelationships will grow over time.
Corridor identity, redevelopment, and infrastructure improvement initiatives
could benefit from a corridor -wide partnership between cities, counties,
businesses /employers, and institutions. The existing Cedar Group could
provide a foundation for this partnership. Precedent corridor partnership
models in the region include the Midtown Greenway Coalition, Minnehaha-
Hiawatha Community Works, Southwest LRT Community Works, Bottineau
Boulevard Partnership, and Ramsey County's I -35W Corridor Coalition.
• Establish a corridor -wide partnership to coordinate the establishment
of a corridor identity and spearhead redevelopment and infrastructure
improvement efforts such as marketing the corridor to attract
TOD, securing and coordinating funding sources, assembling a
corridor -wide redevelopment toolkit, drafting and promoting special
legislation that furthers corridor objectives, and reviewing and
shaping development proposals.
• Work together to promote a unique corridor identity that builds on
existing assets and potential.
• Develop a clear corridor -wide infrastructure and TOD strategy plan.
• Coordinate public investments, funding requests, development, and
housing projects across the corridor rather than competing on a
station -by- station or city -by -city basis.
• Develop coordinated approach to parking management and
provision of structured parking at station areas.
16 November 2013 METRO RED LINE Market & Development Study
Improve BRT access to Cedar Grove Station.The current Cedar Grove Station
operates as an offline station and has been identified as a major concern
due to the amount of travel time that is added to transit trips. MnDOT and
Dakota County are currently studying options to improve access to the
station from Highway 77.
Develop coordinated approach to affordable housing. Because low -
income residents often have limited access to personal vehicles, the Red
Line can serve a key role in improving mobility when affordable housing
developments are strategically located within Red Line station areas. The
Dakota County Community Development Agency (CDA) is well - positioned
to take a leadership role in this effort. The CDA currently purchases
and develops parcels and has an opportunity to focus future efforts on
incorporating affordable housing into the Red Line station areas within
Dakota County.
2.5 FINANCIAL STRATEGIES - NEW
TOOLS
Although a wide variety of financing tools are currently available to the Red
Line cities to assist with development in the station areas, no existing finance
tools available to Minnesota cities are specifically designed to encourage
TOD. This lack of appropriate tools increases the challenges of realizing the
potential for TOD in the Corridor (see discussion earlier in this report).
Corridor stakeholders should work with other interested parties to create
and promote legislative proposals that provide tools needed to undertake
TOD projects along the Red Line and other Corridors of Opportunity. Given
the regional benefits of successful transit service and TOD, all of the TOD
financial burden should not fall to the member cities. Regional and state
monies should be used to close gaps and attract development the station
areas. Appendix C contains a description of existing tools along with
examples of potential applications at selected station areas. Changes in
these tools that would benefit the Red Line corridor include:
• Establish a mixed -use special services district authority.
• Expand tax increment financing authority for TOD.
• Modify the TIFAct to remove barriers and allow uses more consistent
with development and redevelopment in the corridor.
• Expand authority for special assessments to better fit the needs of
redevelopment sites within transit improvement areas.
The following section describes in more detail the needs for and benefits of
such legislative changes to benefit TOD.
Convenient access to the METRO Red Line can
be coordinated with TOD housing to address
housing affordability issues.
METRO RED LINE Market & Development Study November 2013 17
Seek legislation for TOD Special Services Districts.
The concept of a special service district is perfectly suited to encouraging
TOD around station areas. It provides a means to finance improvements that
benefit an area (not just adjacent properties) and a flexible, equitable means
of allocating those costs across the area. Potential improvements include
shared parking, parks, pedestrian systems, streetscape, and wayfinding.
Current statutory authority applies solely to commercial /business districts
and not to the mixed -use environments desired for station areas.
Desired Outcome: Create new statutory authority for TOD special service
districts. Previous attempts to amend the existing statutes to allow mixed -
use districts have not been successful. New statutory authority enables the
tool to be specifically designed to promote the objectives of TOD.
Seek legislation for TOD Tax Increment Financing District.
Existing forms of TIF districts are poorly suited to the needs of TOD. In
recognition of this situation, legislation was introduced during the 2013
Legislative Session (HF 670 /SF 1440) that authorized the establishment
of a transit improvement TIF district. The ability to establish a transit
improvement district relied on two basic findings: (1) the nearest boundary
of each parcel of the district lies within one -half mile of a qualifying transit
line; and (2) establishment of the district is in the public interest because it
will aid in financing improvements or services that will increase effectiveness
of the transit. This type of tool would greatly enhance the ability of Red
Line cities to partner with private development for TOD projects. Without
legislative change, TIF will only be relevant in station areas where existing
development has been allowed to deteriorate to the point where buildings
are structurally substandard.
Desired Outcome: Continue to seek legislative approval for a transit
improvement TIF district.
Seek modification to existing TIF law to allow uses more consistent
with development and redevelopment in the Red Line corridor.
The need to enhance existing authority for using TIF goes beyond the
authority for a new TIF district. There are a variety of other modifications
to TIF statutes that would enhance Red Line cities' ability to promote TOD.
Desired Outcomes:
• Allow tax increments from any district to be spent outside of the TIF
district (pooling) for the purpose of assisting TOD.
• Allow parcels in TIF district to have individual maximum duration
based on the receipt of the first increment.
• Add TOD- related expenses to the eligible uses of tax increment from
redevelopment and renewal /renovation districts and housing.
• Modify the compact development district to allow mixed -use within a
station area.
• Eliminate the development agreement requirements for land
acquisition financed with bond proceeds within a station area.
• Allow the use of tax increment from any new or existing tax increment
district to acquire land in a transit improvement area.
18 November 2013 METRO RED LINE Market & Development Study
Seek legislation to expand authority for Special Assessments
to better fit the needs of redevelopment sites within transit
improvement areas.
State Law (Chapter 429) allows cities to levy special assessments against
benefited properties to payfor public improvements. In some cases,the need
for public improvements precedes the actual development. Under current
law, payment of assessments cannot be deferred until future development
occurs. The requirement for current payments from existing properties
creates financial and practical barriers to the use of special assessments in
station areas. Special assessments levied for parking facilities are subject to
different statutory authority. A city may not issue improvement bonds for
parking facilities unless a minimum of 50% of the cost of the improvement
is levied and special assessments. All other types of improvements have a
20% minimum assessment threshold.
Desired Outcomes:
• Allow cities to defer assessments in transit improvement areas.
• Make parking facilities subject to the same 20% minimum assessment
threshold as other types of public improvements.
Seek legislation to support Transit Oriented Affordable Housing
Development
The Low Income Housing Tax Credit (HTC) Program is the primary financing
program for the new construction and preservation of affordable rental
housing nationally. The HTC program offers investors a 10 -year reduction
in tax liability in exchange for capital investment in eligible affordable rental
housing units. Each state is provided a tax credit allocation based on its
population and a per capita credit volume amount determined annually.
State statute provides that the federal allocation of tax credits available
in Minnesota should be allocated among certain cities and counties. The
Dakota County CDA is designated by the statute as the allocating agency
for Dakota County.
The statue establishes threshold criteria that restrict the use of the HTC
program in Minnesota beyond what is permitted by federal laws and
regulations. One of the criteria is that eligible projects serve families at
or below 60% of the area median income where at least 75% of the tax
credit units contain two or more bedrooms and at least one -third of those
contain three or more bedrooms. A legislative change to this criterion to
allow more flexibility in the bedroom size mix of a project would improve
the HTC program's ability to support transit oriented affordable housing
development. This would allow projects to be developed to serve smaller
households that need affordable housing and are more likely to use the BRT.
Desired Outcome:
• Provide flexibility in bedroom size mix of projects to serve smaller
households that need affordable housing and are more likely to use
transit.
Flexibility in financing a variety of housing
types and sizes in the BRT station areas could
increase the use of transit.
METRO RED LINE Market & Development Study
November 2013 19
3.0 STATION AREA
INVESTMENT STRATEGIES
Existing and future transitways
20 November 2013
3.1 BLOOMINGTON: MALL OF
AMERICA TRANSIT STATION AREA
3.1.1 ASSETS
Promotion of TOD in the Mall of America (MOA) station area builds on a
unique set of locational assets:
• The station is physically connected to the MOA, which attracts a large
number of visitors, shoppers, and workers.
• The mall is planning to expand in phases.
• The station provides a convenient connection to the Minneapolis -St.
Paul International Airport.
• Cedar Avenue/TH 77 and 1 -494 provide excellent highway access to the
station area.
• The area has convenient access to employment centers in
Minneapolis, St. Paul, Bloomington, and the 1 -494 corridor.
The Mall of America Transit Center is the state's busiest transportation hub,
providing direct connection to the Blue Line and a variety of local bus
routes. Several significant new transit routes (arterial BRT) are planned for
the future.
The Red Line provides a notable enhancement to overall transit service
at the transit center. It provides a connection and level of service (that is,
all -day frequent service to the south) not available from existing routes.
BRT significantly enhances transit access to the MOA from central Dakota
County and allows current and future residents in Bloomington to access
employment and amenities in Eagan, Apple Valley, and Lakeville.
METRO RED LINE Market & Development Study
Other major assets of the Mall of America Transit Station include:
• Land Availability. The parcel adjacent to and immediately east of the
station is vacant. The City of Bloomington owns several parcels in the
block immediately west of the 28th Avenue Station. The City is actively
planning for redevelopment on several of the parcels.
• Compatibility with Existing Plans. TOD in the MOA station area
supports and complements the South Loop District Master Plan,
which was adopted by the City of Bloomington in 2012.
3.1.2 CHALLENGES
While transit is a critical asset for this area, the ability to achieve TOD
specifically related to the MOA station area faces several challenges:
• Station Design. The physical design of the station today is not
conducive to adjacent development. Located in the East Parking
Ramp, the station design focuses on access to the Mall and lacks
external visibility that could help encourage access from adjacent
development. The recent MOA Transit Center Master Plan proposal
to significantly redesign the transit station and east entrance to the
Mall will substantially improve the connectivity of the station with the
street and adjacent development.
Proposed Street Entrance to MOA Transit Center
(Source: MOA Transit Center Master Plan - LSA Design, Inc.)
METRO RED LINE Market & Development Study
METRO Blue Line at Mall of America
November 2013 21
Mall of America LRT Station
TYPOLOGIES
Regional Center
22 November 2013
• Adjacent Land Constraints. Future development of adjacent
land faces several constraints, including airport - related land use
controls prohibiting residential uses on the adjacent properties. The
vacant parcel east of the mall is owned by the Metropolitan Airports
Commission (MAC), and the MOA has an option agreement on the
property. For the foreseeable future, the MOA intends to use the lot
for surface parking. Finally, some of the land owned by the City is
occupied by existing uses and would require redevelopment.
• Street Network. The existing and planned local street system is
generally oriented to automobile traffic, creating challenges for
establishing viable pedestrian and bicycle connections between the
MOA Transit Station and development outside of the Mall of America.
Implementation of improvements identified in the South Loop District
Master Plan and the South Loop Streetscape Master Plan will improve
the pedestrian and bicycle environment, including construction of
a core pedestrian way along 24th Avenue immediately outside the
transit station. As transit use grows over time, it may be productive to
revisit traffic and roadway needs in the event there are opportunities
to narrow or otherwise reduce roadway facilities.
• Parking. Given the existing and potential intensity of land use
at the MOA station area, structured parking will continue to be
desirable. The significant transit presence at MOA creates a less
auto - dependent environment and the corresponding potential
to reduce on -site parking. While local parking ordinances provide
flexibility for high transit access locations, developers and financial
institutions may be reluctant to undertake projects with reduced
on -site parking availability in this setting. Regardless, using transit to
reduce the necessary parking supply has significant positive financial
impact on development given structured parking adds to the cost of
development.
3.13 DEVELOPMENT TYPOLOGY
The recommended typology for the Mall of America Transit station area is
Regional Center, which is described as a major regional destination that
serves as an intermodal facility /transit hub with high quality feeder bus/
streetcar connections.
Land -Use Mix
and Density
Characteristics
Housing Mix
High- density mix of
residential, commercial,
employment, and civic/
cultural uses
Primary center of
economic and cultural
activity
High -rise and mid -rise
apartments and condos
METRO RED LINE Market & Development Study
Station area specific typology guidelines include:
• Overview: Major regional retail /entertainment, hospitality, and
employment destination with high quality transit station /plaza as the
state's busiest transit hub and gateway to Cedar Avenue corridor
• Mix of Land Uses: Add commercial, office, high -tech research and
assembly, and hospitality
• Housing Density: Housing is not allowed due to airport land use
restrictions
• Market Opportunity: Commercial, office, hospitality
• Phasing Priority: Short -term and long -term - implement new South
Loop District Plan
3.1.4 GENERAL STRATEGIES
Recent planning efforts undertaken by the City of Bloomington address
many of the challenges identified for the Mall of America station area, so
full implementation of these plans is a key strategy. General strategies to
encourage TOD at the station area include:
• Implement the South Loop District Plan (SLDP), South Loop
Streetscape Master Plan, and MOA Transit Center Master Plan.
• Work with stakeholders to maximize the accessibility of the MOA
Transit Station from outside the Mall.
• Incorporate sidewalks, trails, and crossings into planned street
improvements, particularly safe and attractive pedestrian connections
between transit stations and adjacent property.
• Promote improvements that make the MOA Transit Station a
functional and attractive setting that encourages riders to use the Red
Line as a connector to other transit service.
• Raise awareness and understanding of the benefits of the access to
workers and jobs provided by the Red Line.
• Improve connectivity among destinations for pedestrians and
bicyclists.
3.1.5 ACTION PLAN
Specific actions aimed at achieving the strategies forTOD
at the Mall of America station area are summarized in the
table on the next page and illustrated in the concepts that
follow.
METRO RED LINE Market & Development Study
Art screen on parking garage
Green screen on parking garage
Mixed use development
Lindau Lane street concept (from South Loop Streetscape Master Plan)
November 2013 23
Redesign the Mall of America Transit Center to enhance pedestrian and bicycle access and visibility from 24th Avenue.
Capital
Reconstruct MOA Transit
Center within existing
parking ramp
High
Design 24th Avenue to accommodate transit, pedestrian, and bicycle needs.
Capital
Add to CIP
Add wayfinding system
Work with Hennepin
County to review future
traffic projections for
24th Ave to identify
potential opportunities
for pedestrian and bicycle
enhancements
Enhance streetscape,
including sidewalks, bike
path, pedestrian street
crossings, landscaping,
etc.
High
Explore ways to improve street frontage of MOA at 24th Avenue and Lindau Lane with future redevelopment (e.g. add active
uses at street level, streetscape enhancements, etc.).
Policy
Establish zoning
that encourages
redevelopment to active
street level uses
Medium - High
Enhance pedestrian crossings of 24th Avenue at 82nd Street.
Capital
Add to CIP
Optimize signal timing
to enhance frequency
of pedestrian service,
enhance pedestrian street
crossings
Enhance pedestrian
environment to minimize
the width of a major street
crossing, such as redesign
of "pork chop" islands
Consider adding a
pedestrian skyway
Medium
Create a transit plaza that strengthens the exterior character of the MOA Transit Center on 24th Avenue through flexible
outdoor plaza space, public art, and wayfinding.
Capital
Policy
Add to CIP
Ensure zoning
supports public space
improvements and
requires CPTED design
considerations
Coordinate with MOA
Transit Center redesign
High
Project Type
■
Mid
(2 to 5 years)
Mall of America Phase II concept
Long
(5 to 10 years)
Order of
Magnitude
24 November 2013 METRO RED LINE Market & Development Study
Bloomington: Mall of America Station Area Concepts
Lindau Lane
Building
Work with
MOA to
Explore
Potential
Street-Level
Active Uses
- 1
Potential
Street-Level
Active Uses
Redesigned MOA
Transit Center
Bus/LRT
Facilities
15'
Zne
SIGNAGE
Note: Where street-level uses
are not feasible, trees and
plantings should be used to
screen the street-level facade
of the parking structure
10'
N.)
2
Sidewalk Utilities/ Curb Auto Lane/
Landscape Gutter Potential
Typ. Transit Lane
12'
12'
Future Office
Development
Note: These trees would not be permitted
based on Hennepin County Streetscape
Guidelines, however they may be
permissible if the City is willing to legally
take on all the responsibility for the trees
including any liability
METRO RED LINE Market & Development Study
Recommended 24th Avenue Reconfiguration Considerations
Future Mixed Use
Development
\— Planned
Lindau Lane
Extension
- Vertical Elements / Banner Poles
Gateway Plaza /Gathering Space
Future Mixed Use
Development
ii
Auto Lane Auto Lane Auto Lane
Future Office
Development
Potential Pedestrian Bridge/Skyway Connection
ml I•1 1•I
Sidewalk
Enhanced Pedestrian Crossing
rifil Pedestrian Zone
Planting/Enhanced Streetscape
Bike Facilities
Waynnding
12'
/ Me
VERTICAL ELEMENTS / BANNER POLES
Note: Structures placed in the median
require Hennepin County approval
ttitt 11 1111 •
12'
Auto Lane
12'
Recommended MOA Transit
Center Exterior Considerations
12'
12'
12'
10'
Auto Lane Auto Lane Auto Lane Auto Lane Auto Lane/ Curb Utilities/
Potential Gutter Landscape
Transit Lane Typ.
10'
Bikeway Lan scape Si ewalk Building
November 2013 25
Future TOD Environment
Mall
of
America
Redesigned MOA
Transit Center
Streetscape Improvements
(per South Loop Plan)
E, Enhanced Pedestrian
Crossing
0 Wayfinding
Sidewalk
Multi-Use Path
Streetscape Improvements
New Road
Bike Facilities
Potential Pedestrian Bridge/
in Commercial/Retail Skyway Connection
or civic
ittiovits
Lindau Ln
ei r
1 ',4.1,111. I
Ah.
Work with
MOA to
Explore
Do
Transit Hub/
Gateway
• , 44
4 ,itlet,
American Blvd E
— 7:
Lindau Lane riri
Extension (under construction)
Potential Pedestrian Bridge/
Skyway Connection
3 7,
F
ij
I:. I
E Old Shakopee R
•iI
1 1.1= 1 :111
41.11 ditk
-111 8 andiatil _I 1 I it
Streetscape Improvements
(per South Loop Plan)
mr‘wer
•••••••••A••••••
26 November 2013
METRO RED LINE Market & Development Study
3.2 EAGAN: CEDAR GROVE
TRANSIT STATION AREA
3.2.1 ASSETS
A major asset for achieving TOD at the Cedar Grove station area is Eagan's
adopted Cedar Grove Redevelopment Area Plan, a long-term vision and
master plan for the area that incorporates principles of mixed -use and TOD.
The future development pattern has been defined by the existing plan. BRT
will enhance development opportunities and help to sustain development
in the Cedar Grove area.
Other major assets of the Cedar Grove station area include:
• Location. The proximity to the Mall of America from a regional retail/
entertainment perspective and convenient access and visibility from
two state highways, Minnesota Highway 77 (Cedar Avenue) and CSAH
13 (Sibley Memorial Highway), are important assets for this station.
Proximity to the MOA Transit Station also enhances the transit options
for Cedar Grove.
• Regional Retail. The Paragon Outlets Twin Cities at Eagan Mall will
open in 2014 and anchor development around the station area. The
outlet mall will consist of 440,000 square feet of retail space, with
approximately 100 businesses and 2,000 employees.
• Existing Housing. The existing medium and high - density housing
within the transit station's walkable area is an asset.
• Developable Land. Approximately 18 acres of developable land
owned by the City's Economic Development Authority is available for
potential TOD. One of these sites is currently under review for a new
multi -story apartment building.
• Parking Management. Planning for parking needs has been
proactive as evidenced by a two -level 1,500 -space public parking
structure funded for construction in conjunction with the outlet mall.
A park- and -ride lot also was constructed as part of the transit station.
• Open Space. The Cedar Grove station area is close to major regional
open spaces, including the Minnesota River Valley National Wildlife
Refuge and Fort Snelling State Park. Renovation of the old Cedar
Avenue Bridge would provide a pedestrian /bike connection between
Cedar Grove and Bloomington. A new public park is planned within
the station area in conjunction with the mall project.
• Financing Tools. A large area around the transit station is within
the boundaries of the Cedar Grove TIF District. While tax increment
revenue is needed to pay for existing public investments, this tool
creates a means of funding additional public actions. The City also
has established the Cedarvale Special Service District, which provides
a tool for funding the construction and the maintenance of public
improvements around the station area.
Cedar Grove Transit Station
METRO RED LINE Market & Development Study November 2013 27
Paragon streetscape concept
Paragon development concept
28 November 2013
METRO RED LINE Market & Development Study
3.2.2 CHALLENGES
The Cedar Grove station area faces challenges to achieving TOD related to
development potential, connectivity, and public open space amenities:
• Development Potential. While the development of the new outlet
mall is not a typical transit oriented use, it will bring significant
new energy and activity to the station area. Achieving TOD on
the remaining parcels will require overcoming several challenges.
Competition for TOD housing from closer -in sites that may bring
higher rents to owners is one concern. The level of development
necessary to support investment of public parking structures may not
be viable from market and political perspectives. Finally, holding firm
on the commitment to mixed -use TOD for remaining land in the Cedar
Grove redevelopment area may prove difficult.
• Access and Connectivity. With construction of the outlet mall
between mid -2013 and 2014, many improvements to the pedestrian
and bicycle network are being added in the station area. However,
the Cedar Grove station area still has relatively limited non - motorized
access and connectivity due to its location at the corner of two state
highways and a large freeway interchange.
• Red Line Access to /from Highway 77. To access the Cedar Grove
Transit Station today, the Red Line buses must exit Highway 77 and
travel on local roads both to and from the station. As was stated in the
corridor -wide strategies section of this report, the travel time this adds
to a trip on the Red Line has been identified as a significant concern
to the potential success of the line overall. Potential solutions are
currently under development in a separate study. Implementation of
a solution to this issue will be important to the success of both the Red
Line and to development at the Cedar Grove station area.
3.2.3 DEVELOPMENT TYPOLOGY
The recommended typology for the Cedar Grove station area is Suburban
Center, which is summarized as primarily a regional destination for
commercial, employment, and commuters, with a smaller portion of
residential development. It serves as a park and ride station that also will
accommodate walk -up access from residents and business employees
within the station area.
Station area specific typology guidelines include:
TYPOLOGIES
METRO RED LINE Market & Development Study
Cedar Grove Parkway concept with pedestrian
and bicycle trail
Land -Use Mix
and Density
Characteristics
Housing Mix
Moderate- to high -
r- Y
densit mix of residentia
commercial, employment,
and civic /cultural uses �
T
Significant center of
economic and cultura
activity with regional-
scale destinations
Mid -rise, low -rise,
townhomes, and some
high -rise
November 2013 29
High density housing
Retail development
Mixed use development
30 November 2013
• Overview: Regional destination for retail /restaurants, employment,
and transit services with mix of housing types in surrounding
neighborhood
• Mix of Land Uses: Add residential or retail
• Housing Density: Focus on adding high density residential within
walking distance of the transit station
• Non - Residential Intensity: Leverage public parking structure to
increase floor -area ratio (FAR)
• Market Opportunity: Retail, hospitality, housing
• Phasing Priority: Short term - build upon retail outlet mall
momentum
3.2.4 GENERAL STRATEGIES
The focus for the Cedar Grove station area will be to use transit to support
existing development and to promote TOD on remaining development
sites. Specific strategies for this area include:
• Promote recognizable and convenient connections between Cedar
Grove and the MOA.
• Raise awareness in the local development community about the
access provided by BRT for residents and workers in the Cedar Grove
area.
• Continue the process of building high - quality streets and public areas
to enhance the area for visitors, residents and transit users.
• Continue to enhance the sidewalk and trail system to allow safe and
convenient movement within the Cedar Grove area and connect the
area to surrounding neighborhoods.
• Provide wayfinding information at the Cedar Grove station to orient
visitors to the Cedar Grove area and to inform about other amenities
in the area.
• Explore ways to connect the station area with the regional trail
system.
• Explore alternatives to improve connections between property in the
northeast CedarAvenue/TH 13 quadrant and Cedar Grove.
• Continue to explore ways to use existing parking facilities (and the
ability to expand the facilities) as a means to encourage TOD.
3.2.5 ACTION PLAN
Specific actions aimed at achieving the strategies for TOD at the Cedar Grove
station area are summarized in the table on the next page and illustrated in
the concept that follows.
METRO RED LINE Market & Development Study
Promote pedestrian- oriented site and building design on remaining redevelopment sites along Paragon Parkway.
Policy
Use the Cedar Grove
Zoning District's
standards to attract future
development along
Paragon Parkway that
includes street level active
uses fronting Paragon
Parkway
Low - Medium
Enhance pedestrian crossings at intersections connecting the station to the outlet mall (e.g. pedestrian signal, pavement
markings, curb bump -outs, etc.).
Capital
Add to CIP
Design intersection
improvements
Construct improvements
Medium
Target TOD uses (e.g. higher density, mixed income residential development) on remaining redevelopment sites nearest the
transit station with active street level uses.
Policy
Seek development
through an RFQ
Use Cedar Grove Zoning
District as a mechanism
to facilitate desired
development form while
allowing greater flexibility
in uses
Low
Add pedestrian and bicycle facilities to Carnelian Lane (e.g. bike boulevard and sidewalk on one side).
Capital
Prepare streetscape
design concept
Add to CIP
Add street bikeway
markings
Construct sidewalk
Medium
Develop a parking management strategy that optimizes investment in parking facilities relative to future development
capacity.
Policy
Collaborate with mall
tenants and future
developers to prepare
a parking management
strategy
Integrate into zoning
mechanism
Low
Create better access and connectivity to the Minnesota River Valley open space and recreation areas (note: requires grade -
separated crossing of CSAH 13).
Policy
Capital
Study feasibility of street/
trail crossing - design and
add to CIP if appropriate
Construct street /trail
Medium - High
Project Type
1
METRO RED LINE Market & Development Study
Long
(5 to 10 ears)
Order of
Magnitude
November 2013 31
Eagan: Cedar Grove Station Area Concept
Future TOD Environment
L
z .
`--s t.,<)
G CO
N
Transit Plaza
Future
Development
4.8 acres
0
7
U
ooz
Potential Grade - Separated
Bike /Ped Connection
�a 0N\14y
M
Future
Development
4.4 acres
4
On- Street
Bike Boulevard
C
%« /? `h
0000
D �, Enhanced Pedestrian
%0 Crossing
0 200
Bike Facilities
Wayfinding
Sidewalk
Multi -Use Path
On- Street Bikeway
al High Density Residential
IIIIII Commercial /Retail
32 November 2013
METRO RED LINE Market & Development Study
3.3 APPLE VALLEY: 140TH STREET
TRANSIT STATION AREA
3.3.1 ASSETS
While a strength of the 140th Street station area is its proximity to existing
neighborhoods, it has a number of other primary assets as well:
• Proximity to Established Residential Neighborhoods. While the
existing residential area is dominated by single - family homes, there is
existing medium and high- density housing within the transit station's
walkable area.
• Developable Land. Approximately 13 acres of developable land with
mixed -use potential is guided for future residential development right
at the Cedar Avenue /140th Street intersection.
• Potential Transit Connection. 140th Street could serve as a key
transit connection point for educational institutions located east and
west of the transit station, including two high schools and a post-
secondary school. It also serves as a feeder route from the adjacent
residential neighborhoods to Cedar Avenue and the Red Line.
• Potential Park - and -Ride Facility. The northwest corner of the Cedar
Avenue /140th Street intersection is a potential site for a future MVTA
park- and -ride facility to serve the Red Line and other transit routes.
To be a community asset, the facility would need to be designed to
integrate with the allowed land uses around it.
3.3.2 CHALLENGES
The 140th Street station area's potential to serve as a neighborhood transit
hub for the adjacent neighborhoods east and west of Cedar Avenue will
benefit from addressing the following challenges:
• Development Potential. Single - family homes already surround the
140th Street transit station. This current use thus limits the overall
potential for adding new housing beyond what can be achieved on
the northwest and southwest corners.
• Connectivity. Access and connectivity is a challenge for this station
area. The station itself is located mid -block along opposite sides
of Cedar Avenue, without direct street connections. While this
arrangement allows bus access with minimal interference with
vehicle traffic, it hinders station accessibility by pedestrians, bicyclists,
and motorists. Connectivity for pedestrian and bicyclists is further
challenged by Cedar Avenue's cross section, which is a 6 -10 lane high
speed principal arterial roadway.
• Potential Park - and -Ride. While the potential park- and -ride facility
at the intersection of Cedar Avenue and 140th Street is an asset, it
also poses a challenge to TOD in the station area. If the park- and -ride
idea is advanced, plans should consider incorporating TOD into the
site. Examples might include mixed -use residential and supporting
commercial uses with structured parking.
METRO RED LINE Market & Development Study
Existing conditions
Existing conditions
November 2013 33
Highly visible street crossing
TYPOLOGIES
Fill ril="A Fl ii 1 Wi C7 L ,'''=..
Townhomes with street frontage
34 November 2013
Ernrnau Ba: . h. PA tDSireerPrint scieei InI,corn
• Public Open Space. The station area is generally developed and lacks
public parks, open spaces, and other gathering places. Such spaces
would help attract TOD housing and serve as a general amenity.
3.3.3 DEVELOPMENT TYPOLOGY
The recommended typology for the 140th Street station area is Transit
Neighborhood, which is summarized as a predominately residential
neighborhood surrounding a walk-up transit station.
Land -Use Mix
and Density
Characteristics
Housing Mix
Low- to moderate - density
residential uses with
1 supporting commercial
and employment uses
Predominantly
residential district with a
neighborhood walk -up
transit station
Low -rise, townhomes,
small -lot single family, and
some mid -rise
3.3.4 GENERAL STRATEGIES
Without parking facilities available for transit riders, this station relies on
walk -up users, placing more emphasis on the need for safe and convenient
access to and from surrounding neighborhoods.
Building upon the identified 140th Street station area assets and addressing
its key challenges, the following solutions are recommended for encouraging
TOD within the 140th Street station area:
• Complete the evaluation of the northwest quadrant for use as a park -
and -ride facility.
If the property is targeted for a park- and -ride facility, evaluate TOD
commercial and residential uses that can be accommodated on the
site
If the property is not an appropriate site, include strong pedestrian
and bicycle connections to the station area during future site
planning.
• Make the station area more accessible for pedestrians, bicyclists, and
kiss - and -ride users.
• Provide safe and convenient crossings of Cedar Avenue and 140th
Street. A future elevated pedestrian crossing is possible if supported by
transit ridership.
• Identify and address gaps in the sidewalk and trail system.
3.3.5 ACTION PLAN
Specific actions aimed at achieving the strategies for TOD at the 140th Street
station area are summarized in the table on the next page and illustrated in
the concept that follows.
METRO RED LINE Market & Development Study
Provide pedestrian and bicycle connections (e.g. sidewalks, trails, on- street bicycle facilities) within the 10- minute walkshed
of the stations along all through streets
Policy and Capital
Conduct pedestrian
and bicycle access
improvements study with
identification of possible
funding sources
Add to CIP
Construct sidewalks and
access improvements,
such as south side of
140th Street east of Cedar
Medium
Prepare station area plans that will guide future TOD, mobility, connectivity, and public realm improvements
Policy
Complete BRTOD Guide
Plan including Design
Guidelines and BRTOD
Land Use regulations
Complete Comprehensive
Plan amendment for
BRTOD Overlay
Adopt BRTOD Design
Guidelines and Land Use
Regulations
Low
Provide enhanced bicycle facilities at the 140th Street station (e.g. lockers, parking, pumping stations, etc.).
Capital
Add to CIP
Low
Project Type
Order of
Magnitude
New housing to be compatible
with existing neighborhoods
METRO RED LINE Market & Development Study November 2013 35
Apple Valley: 140th Street Station Area Concept
Future TOD Environment
n-
ea
ro
Future Pedestrian Overpass
New Multi -Use Path
140th St W
400
A
N
Sidewalk
Enhanced Pedestrian Crossing
Multi -Use Path
▪ Bike Facilities
Cedar Avenue Red Line Station
— "1 Development Opportunity Area
36 November 2013
Notes:
• Development opportunity area currently guided by the 2030
Comprehensive Plan and Zoning Map for medium to higher density
housing.
• Development interest from the marketplace may include residential with
a mix of supportive retail /commercial.
• Structured parking being discussed to serve 140th Street Transit Station.
METRO RED LINE Market & Development Study
3.4 APPLE VALLEY: 147TH STREET
TRANSIT STATION AREA
3.4.1 ASSETS
The strengths of the 147th Street station area are rooted in its location on
the north edge of the Apple Valley downtown district.
• Location. The station area is part of Apple Valley's downtown identity
and 147th Street is part of the Apple Valley Ring Route system. It is
located in close proximity to the downtown district and near the
Apple Valley Transit Station at 155th Street. The station benefits from
high traffic visibility from Cedar Avenue and CSAH 42. Government
service centers for both city and county are located within the station
area.
• Redevelopment Potential. The station area is surrounded by low -
density residential and commercial land uses. Over time, the market
will encourage redevelopment of properties in this area. Access to BRT
may accelerate redevelopment opportunities and will broaden the
range of redevelopment options. As a significant employment center
in downtown Apple Valley, the area could attract housing as part of a
future mixed -use district and support additional mixed -use retail and
employment uses. Some vacant and underutilized properties are ripe
for redevelopment, if adjacent properties can be assembled.
• Existing Public Infrastructure. Existing public infrastructure can
support infill development and redevelopment, and no significant
public infrastructure investments are needed to accommodate new
development around the station area.
• Connectivity. The walkable area for the station includes a variety
of office, retail, lodging, and dining destinations. The Apple Valley
Municipal Center and the Dakota County Western Service Center are
also within the walkable area. Also, the BRT station has been designed
to accommodate the future construction of a pedestrian skyway over
Cedar Avenue.
3.4.2 CHALLENGES
The 147th Street station area faces challenges to achieving TOD related to
visioning, development constraints, connectivity, and market forces.
• Long -Term Vision. While the City has completed studies and plans for
this station area, community consensus around a long -term preferred
vision tends toward emphasizing more commercial development
rather than housing development . A clear vision and plan for the area
is needed to provide guidance for both public and private investment.
The absence of such a vision creates two risks: 1) no tangible
investment occurs and the physical condition of the area begins to
deteriorate and 2) investments occur that are inconsistent with the
long -term vision and become barriers to desired future development.
• Development Constraints. The station area is located in a fully built
environment. No vacant development sites readily accessible to the
METRO RED LINE Market & Development Study
Existing wayfinding signage
147th Street station area
November 2013 37
TYPOLOGIES
38 November 2013
station could facilitate a near -term TOD project. Future development
faces a collection of typical redevelopment challenges, including:
»
Assembling small existing parcels into new development sites.
Additional development costs from land assembly, the removal
of existing structures, and of the potential redesign of existing
infrastructure.
Need for additional commercial density to make redevelopment
financially feasible and achieve TOD objectives.
Cost - effective development of structured parking to support
additional density.
Financial feasibility of projects facing these additional costs and
competition from other development built on undeveloped land.
• Existing Development. The station area lacks adjacent user parking,
so BRT ridership is limited to pedestrians, bicyclists, and riders
transferring from connecting routes. In addition, the station area lacks
public parks, open spaces, and gathering places.
• Connectivity. Challenges to connectivity are indicative of the station
area's suburban context. These challenges include the cross section of
Cedar Avenue (CSAH 23), large blocks, and the presence of surface lots
between buildings and streets.
• Competition for Development. In addition to competing with
undeveloped land within Apple Valley, the 155th Street station area
is more likely to attract TOD projects initially than 147th Street. Given
this, an active role by the City will be required to attract and sustain
TOD in this station area.
• Timing. Timing is an important challenge. It may be a number of
years before the combination of established BRT service and market
forces create the catalyst for the preferred type of TOD in the 147th
Street station area. In the interim, the city faces the challenge of
allowing sufficient private investment to maintain viability while not
creating new barriers to future development.
3.4.3 DEVELOPMENT TYPOLOGY
The recommended typology for the 147th Street station area is Town
Center, which is summarized as a suburban town center for commercial,
employment and residential with community and regional destinations.
Land -Use Mix
and Density
Characteristics
Housing Mix
Moderate density mix of
residential, community,
employment and civic/
cultural uses
Local center of economic
and community activity
lb.
Mid -rise, low -rise, and
townhomes as a buffer to
adjacent neighborhoods
METRO RED LINE Market & Development Study
Station area specific typology recommendations include:
• Overview: Mixed -use area, both vertical and horizontal, of
commercial, employment, residential, and civic /cultural uses; more
urban building and site designs. Housing types within walking
distance of transit station are limited by the area's predominantly
commercial development.
• Mix of Land Uses: Significantly increase commercial and /or
employment uses and add park /open space amenities
• Housing Density: Focus on adding medium density and high density
residential in a mixed -use environment if supported by the market
• Non - Residential Intensity: Redevelop to a more intense, mixed -use
area with higher floor area ratios (FAR)
• Market Opportunity: Mixed -use; dependent upon redevelopment
interest and land assembly
• Phasing Priority: Longer term
3.4.4 GENERAL STRATEGIES
The most pressing need for the 147th Street station area is for community
consensus around a vision and future development plan for this area. With a
meaningful vision and plan, a framework can be put in place to guide public
or private investment. Private investment in TOD will be hampered without
a clear understanding of commitment to a plan for future development of
surrounding properties. Public investment can then be shaped around the
desired private development outcomes.
• Establish consensus around a clear vision and plan for the station
area.
• Target public infrastructure improvements at maximizing accessibility
to the stations and between the stations and potential destination
land uses in the interim.
• Consider the creation of a mixed -use district on the west side of Cedar
Avenue that integrates places to shop, work, and live into established
older commercial areas.
• Create an attractive public realm that includes a mix of publicly -
accessible parks, plazas, and trails that connect throughout the
station area.
• Identify public - private partnerships for improvement and
redevelopment.
3.4.5 ACTION PLAN
Specific actions aimed at achieving the strategies for TOD at the 147th Street
station area are summarized in the table on the next page and illustrated in
the concepts that follow.
METRO RED LINE Market & Development Study
Ornamental streetscape
Activated pedestrian realm
November 2013 39
Provide pedestrian and bicycle connections (e.g. sidewalks, trails) within a 10- minute walking radius of the station.
Capital and Policy
Conduct pedestrian
and bicycle access
improvements study with
identification of possible
funding sources
Explore use of on- street
bike lanes
Construct sidewalks /trails
and access improvements
Glenda Dr. to SB 147th St
station connection
Glazier Ave and 146th St
pedestrian and bicycle
crossings
Medium
Construct Cedar Avenue pedestrian skyway at 147th Street station.
Capital
Identify funding sources
Identify commercial
developer
Construct pedestrian
skyway
Medium
Provide enhanced bicycle facilities at the 147th Street station (e.g. lockers, parking, pumping stations).
Capital and Policy
Partner with Nice Ride to
locate facilities at 147th St
station
Design and install bike
facilities
Low
Prepare station area plans to guide future TOD, mobility, connectivity, and public realm improvements.
Policy
Complete BRTOD Guide
Plan including Design
Guidelines and BRTOD
Land Use
Complete Comprehensive
Plan amendment for
BRTOD Overlay
Adopt BRTOD Design
Guidelines and Land Use
Regulations
As redevelopment and
repositioning of existing
sites occurs, consider
opportunities for
obtaining public open
spaces and creating more
bikeable /walkable street
system
Low
Project Type
Activated pedestrian realm
40 November 2013
Mid
(2 to 5 years)
Long
(5 to 10 years)
Order of
Magnitude
METRO RED LINE Market & Development Study
Apple Valley: 147th Street Station Area Concepts
Recommended TOD Projects
r
Future
Pedestrian Overpass
Upper 146th St W
401 * * *01#,,,,i+
-4.4.0.0044.....4,64*-- l it
147th St W
, . S .040,64 .0.41, gas, +�s�+ cr •
1 " .
Sidewalk
Enhanced Pedestrian Crossing
Multi -Use Path
On- Street Bikeway
Bike Facilities
® Cedar Avenue Red Line Station
Potential Mixed Use on Vacant Parcels
METRO RED LINE Market & Development Study November 2013 41
Future TOD Environment
o Q % Enhanced Pedestrian
D ° Crossing
Bike Facilities
• Wayfinding
Sidewalk
Multi -Use Path
On- Street Bikeway
■ ■• New Street
L � • J
- Development Opportunity Area
42 November 2013
Notes:
• Predominantly commercial and retail area with
some park space residential additions in a mixed -use
configuration.
METRO RED LINE Market & Development Study
3.5 APPLE VALLEY: 155TH STREET
TRANSIT STATION AREA
3.5.1 ASSETS
The 155th Street /Apple Valley Transit Station (ANTS) station area provides
an excellent setting for TOD. Among the TOD assets in this station area are:
• Location. The 155th Street station area is part of downtown Apple
Valley's identity and near two major regional highway corridors
(Cedar Avenue and CSAH 42).
• Transit Hub. The station is a major transit hub with a variety of other
transit services and routes. It features a visible and efficient elevated
pedestrian crossing of Cedar Avenue.
• Existing Parking. The station includes an existing structured parking
facility with the ability to expand.
• Vacant Land. Adjacent vacant land (surface parking and vacant
lot to the east, surface parking adjacent to former station) provide
opportunities for future development. Some parcels in the station area
are underutilized.
• Existing Development Mix. The station area boasts a wide range of
retail, service, lodging, dining, and entertainment destinations within
the walkable area. Medium and high density housing also exists
within transit station's walkable area.
• Connectivity. The 155th Street station area is within walking
distance to the current and future development in Central Village,
a 60 -acre new urbanist style neighborhood to the east of AVTS.
Connectivity is aided by the Ring Route pedestrian environment and
the new Cedar Avenue pedestrian skyway.
3.5.2 CHALLENGES
The 155th Street station area faces challenges to achieving TOD related to
long -term vision, restrictions on vacant property, walkability, and market
limitations:
• Long -Term Vision. While the City has completed studies and plans for
this station area, community consensus around a long -term preferred
vision is still underway.
• Restrictions on Vacant Property. One vacant property immediately
adjacent to the station is owned by MVTA. MVTA currently is studying
the use ofa portion of this property for a bus layover facility. The
design of this facility will directly impact the ability to use this
property for TOD. The design also will have implications for the future
redevelopment of adjacent property. Another adjacent vacant parcel
(former transit station) is owned by the City of Apple Valley's Economic
Development Authority (EDA), leased to MVTA, and is subject to
transit - related use restrictions. Clarification of these restrictions will
help to determine potential TOD uses.
Apple Valley streetscape
METRO RED LINE Market & Development Study November 2013 43
TYPOLOGIES
Suburban Center
High density housing
44 November 2013
• Walkability. Some vacant property within the walkable area
is located in the Central Village district. Better pedestrian and
bicycle connections between the transit station and Central Village
properties are needed for development at this location to have a
strong relationship to transit. All other property in the station area
is developed in an auto- oriented pattern, and changes are needed
to build stronger north /south pedestrian and bicycle connections
between development and transit. TOD would require the
redevelopment of existing land uses.
• Market Limitations. There are market limits on the amount of TOD
land -use types (higher density housing, office and mixed -use) that will
occur in Apple Valley at any given time. Central Village competes with
the 155th Street station area for this development. Existing ordinances
do not guide potential building heights and parking ratios as is often
done for transit station areas.
3.5.3 DEVELOPMENT TYPOLOGY
The recommended typology for the 155th Street station area is Suburban
Center, which is summarized as a suburban town center for commercial,
employment, and residential with community and regional destinations.
Land -Use Mix
and Density
Characteristics
Housing Mix
Moderate- to high_
density mix of residentia
commercial, employment,
and civic /cultural uses
Significant center of
economic and cultural
activity with regional -
scale destinations
Mid -rise, low -rise,
townhomes, and some
high -rise
Station area specific typology recommendations include:
• Overview: Significant center of economic and cultural activity with
community scale retail /service businesses and a broader mix of
housing types within walking distance of transit station
• Mix of Land Uses: Increase higher density residential, mixed -use, and
central park /open space amenities
• Housing Density: Focus on adding market- supported higher density
residential between station and Central Village
• Non - Residential Intensity: Modify suburban building layout and
intensity, increase floor -area ratios (FAR)
• Market Opportunity: Residential, pad retail /restaurants, small office
buildings - extend Central Village build -out west to transit station
• Phasing Priority: Short term - Cub Foods reinvestment and new
street- oriented buildings, potential mixed -use development, Central
Village, which are all market -ready for transformation
METRO RED LINE Market & Development Study
3.5.4 GENERAL STRATEGIES
The combination of transit facilities and adjacent land make the 155th Street
station area a prime location for TOD. The overarching strategy for this
station is to demonstrate that BRT is an asset for both existing and future
development. This understanding will enhance the ability to undertake
future actions that encourage transit use and promote TOD. A near -term
TOD project would help to demonstrate the concept and the benefits of
TOD.
• Work closely with MVTA in the planning of the bus layover facility to
ensure the design does not deter TOD development.
Identify ways to leverage financial resources that make TOD more
affordable.
Identify physical and financial barriers to redevelopment and create
strategies to offset them.
• Undertake a planning effort (similar to that of the bus layover facility)
to evaluate and implement a TOD project on the former transit station
site.
• Focus near -term infrastructure improvements on creating stronger
connections between existing development and transit.
• Employ infrastructure and wayfinding to encourage transit riders to
use the station area as a shopping destination and attract interest in
Central Village.
• Strengthen the pedestrian and bicycle connections between the
station area and the Central Village to help promote development of
vacant parcels in that area.
• Establish strong pedestrian and bicycle connections, particularly
north - south, between the transit station and nearby commercial and
residential districts.
• Consider bike sharing (Nice Ride) to expand access. In combination
with improvements to the bicycle system, bringing Nice Ride to Apple
Valley could help bridge some of the walkability gap that results from
the large blocks and relatively spread out nature of the downtown. For
example, stations at Central Village, the transit station, and elsewhere
could link key assets in new ways. Nice Ride is a bike sharing system
currently in place in Minneapolis and St. Paul with potential for
expansion to other communities.
3.5.5 ACTION PLAN
Specific actions aimed at achieving the strategies for TOD at the 155th Street
station area are summarized in the table on the next page and illustrated in
the concepts that follow.
Bike repair station
Bike storage
METRO RED LINE Market & Development Study November 2013 45
Prepare station area plans that enhance mobility, connectivity, and define the public realm.
Policy
Complete BRTOD Guide
Plan including Design
Guidelines and BRTOD
Land Use
Complete Comprehensive
Plan amendment for
BRTOD Overlay
Adopt BRTOD Design
Guidelines and Land Use
Regulations
As redevelopment and
repositioning of existing
sites occurs, consider
opportunities for
obtaining public open
spaces and creating more
bikeable /walkable street
system
Low
Provide pedestrian and bicycle connections (e.g. sidewalks, trails) within a 10- minute walking radius of the station.
Capital and Policy
Conduct pedestrian
and bicycle access
improvements study with
identification of possible
funding sources
Explore use of on- street
bike lanes
Construct sidewalk /trail
and access improvements
• Connections to
Central Village
• Enhance
pedestrian and
bike crossings
and 153rd St,
Garrett Ave,
Cedar Ave, and
155th St
Medium
Provide bicycle facilities at the 155th Street station (e.g. lockers, parking, pumping stations, etc.).
Capital and Policy
Design and install bike
facilities
Contact Nice Ride and
help bring them to Apple
Valley
Low
Project Type
Mid
(2 to 5 years
Long
(5 to 10 years)
Order of
Magnitude
Passive park
46 November 2013
METRO RED LINE Market & Development Study
Apple Valley: 155th Street Station Area Concepts
Recommended TOD Projects
Sidewalk
Enhanced Pedestrian Crossing
Multi -Use Path
On- Street Bikeway
Bike Facilities
Cedar Avenue Red Line Station
Mixed Use Opportunity Area
•
Notes:
Potential mixed -use development areas adjacent to
Apple Valley Transit Station (AVTS) and vacant land
within the Central Village.
METRO RED LINE Market & Development Study November 2013 47
Future TOD Environment
C °° .
Enhanced Pedestrian
c °a c' Crossing
Bike Facilities
Wayfinding
Sidewalk
Multi -Use Path
On- Street Bikeway
••• Connecting Corridor
Lr 1 Mixed Use Opportunity Area
48 November 2013
Notes:
• Opportunity area for commercial and retail land uses,
which may include infill development of existing
large parking lots. Potential development areas for
commercial, housing, and mixed -use also exist in the
adjacent Central Village area.
METRO RED LINE Market & Development Study
3.6 LAKEVILLE: 181ST STREET TRANSIT
STATION AREA
3.6.1 ASSETS
The 181st Street station area's assets consist of significant undeveloped
land, locational advantages, and early development features.
• Undeveloped Land. The station area is primarily undeveloped
agricultural land with a small number of property owners, which
enables easier property assembly and development. Future
development will significantly increase the potential number of transit
users in this area.
• Location. The advantages offered by the station's location include
Cedar Avenue /CSAH 23 serving as the primary north -south roadway
between 1 -35 and Hwy 3 through the county. In addition, Airlake
Industrial Park —a major employment center with more than 4,000
employees is located approximately two miles south on Cedar
Avenue.
• Early Development. While the station area is primarily undeveloped,
early development features that benefit future TOD include transit
station and park- and -ride lot, community retail center, medium and
high density housing, and a multi -use trail on both sides of Cedar
Avenue. Dodd Boulevard is planned for realignment, increasing
accessibility of the transit station for other parts of Lakeville and
Farmington.
3.6.2 CHALLENGES
BRT service currently does not extend to this station, and the existing
express bus service likely will not serve as a catalyst for TOD. Realizing TOD
at 181st Street will require extension of BRT. Challenges facing the 181st
Street station include planning nowforfutureTOD and addressing expected
issues with connectivity.
• Preserving Future Opportunities. Given that the station is not
included in Phase 1 of the Red Line, the greatest challenge is the ability
to preserve the future opportunity for TOD as market forces press for
more conventional uses in the near -term. The non -TOD development
market may arrive prior to extension of BRT service. To maximize TOD
potential, it will be important to avoid the challenge facing the 140th
Street Station where existing residential development limits TOD
potential.
• Long -Term Vision. The southern portion of the station area is not
within the Metropolitan Urban Service Area (MUSA), is designated as
Urban Reserve, and requires a special area plan and Comprehensive
Plan amendment prior to development. The lack of visioning and land
use controls limits the ability of the City to leverage public investments
with private development to achieve TOD outcomes. In particular,
controls governing the street network, block sizes, and housing mix
and density would prove helpful.
METRO RED LINE Market & Development Study
November 2013 49
Off -road trail is safe for bicyclists
Marked street crossing
50 November 2013
TYPOLOGIES
• Connectivity. At 181st Street, CedarAvenue /CSAH 23 is a 4 -lane, high
speed minor arterial roadway that is difficult to cross for pedestrians
and bicyclists. Future development in the station area will need to
work within the constraints of access restrictions on Cedar Avenue.
3.6.3 DEVELOPMENT TYPOLOGY
The recommended typology for the 181st Street station area is Commuter
Town Center, which is summarized as a destination station for both
northbound park and ride commuters as well as walk -up commuters from
the station area.
Land -Use Mix
and Density
Characteristics
Housing Mix
Low- to moderate - density
residential uses with
supporting commercial
and employment uses
Capture station for
in -bound commuters
with large park and ride,
primarily residential with
local and commuter -
serving commercial
Low -rise, townhomes,
small -lot single family, and
some mid -rise
3.6.4 GENERAL STRATEGIES
The following strategies are recommended to build upon the identified
181st Street station area assets and address its key challenges:
. Consider undertaking a small -area planning process to provide
a means to have a public discussion about TOD in context of the
broader development of this area.
Employ TOD supportive actions sooner rather than waiting for the
next update of the Comprehensive Plan.
Identify key future TOD parcels and explore options for preserving
TOD options.
Identify and establish tools prior to the full update of the
Comprehensive Plan.
- Actively encourage Red Line BRT service to be extended to 181st Street
sooner than currently planned. Lakeville cannot realize the benefits of
the Red Line service until it is extended. Extension to the 181st Street
Station and beyond is also a critical step to the future connection with
employment in Air Lake.
. Safe, convenient, and comfortable Cedar Avenue pedestrian /bike
crossing. Strong connections across Cedar are needed to link the
station with future development west of Cedar.
. Coordinate pedestrian /bike connections with planned east -west
roadway improvements.
. Consider service to the station area and future TOD in planning for
extension of municipal sewer and water systems.
METRO RED LINE Market & Development Study
Incorporate TOD principles and diagram into the Comprehensive Plan for Cedar Avenue 181st Street station area - District 12.
Policy
Amend the
Comprehensive Plan by
inserting TOD principles
and diagram
Low
Partner with landowners to create a special area plan and regulating plan that guides TOD within the Cedar Avenue Corridor
station areas.
Policy
Form partnership with
landowners /developers
Prepare special area plan
Prepare regulatory tool
(consider form based
code)
Low
Increase residential densities allowed in TOD station areas.
Policy
Amend the
Comprehensive Plan by
revising /adding new
residential land use
categories
Low
Extend public utilities to the 181st Street station area.
Capital
As development occurs,
ensure it includes the
extension of water
and sewer services
to eventually provide
services to the 181st
Street station area
High
Provide bicycle and pedestrian improvements to facilitate strong connections to adjacent neighborhoods.
Capital
Prepare bicycle and
pedestrian connectivity
plan
Insert I n CIP
As development occurs,
ensure that it includes the
construction of sidewalks
and trail s to provide walk/
bike access to the 181st
Street station area
Medium
3.6.5 ACTION PLAN
Specific actions aimed at achieving the strategies for TOD at the Lakeville
Transit Station (181st Street) are summarized in the table below and
illustrated in the concept that follows.
Project Type
immoilimmentidl
METRO RED LINE Market & Development Study
Mid
(2 to 5 years)
Long
(5 to 10 years
Order of
Magnitude
November 2013 51
Lakeville: 181st Street Station Area Concept
Future TOD Street Network
<>. Primary Street Network
GIEEE> Secondary Access Roads
® Cedar Avenue Red Line Station
52 November 2013 METRO RED LINE Market & Development Study
Lakeville 181st Street Station Area
TOD Guiding Principles
• The street network should be well- connected and promote
neighborhood walking, bicycling and transit use.
• All streets should balance the needs of driving, walking, biking and
riding transit.
• CedarAvenue /CSAH 23 should have safe, convenient and
comfortable pedestrian /bike crossings wherever feasible.
• Neighborhood design should incorporate and reflect the planned
east -west greenway in the vicinity of 183rd Street.
• A neighborhood park east of Cedar Avenue should have a central
location that has good connections to the planned east -west
greenway and the transit station.
• Residential land uses should consist of a mix of TOD housing types
that offer a variety of housing options for residents interested in
convenient transit access.
• Medium and high density housing, including multi -story apartment/
condominium buildings and townhouses, should be a focus east of
Cedar Avenue and nearest to the transit station since pedestrian /bike
access to the transit station will likely be more challenging from the
west side of Cedar Avenue.
• Affordable housing options should be promoted near the transit
station and integrated with other types of housing and commercial
development.
• Commercial development should be designed with buildings that
front onto streets, parking areas located behind and to the side of
buildings, and convenient pedestrian /bike connections.
• Any structured parking components should have an active street
level use and design that presents a comfortable and inviting
pedestrian environment.
METRO RED LINE Market & Development Study November 2013 53
I.'
METRO RED LINE Market & Development Study
NOVEMBER 2013