CY14-25

Request of Brett Skilbred, with permission of the property owner, for a Land Use Plan amendment to change the guided land use from Light Industrial to Medium Density Residential. The subject properties are described as approximately 188,000 sqft and located in Blocks 7-10, Columbia Park Addition, City of Mankato, and Blocks 23-24, Germania Park Add, City of Mankato (8^th Avenue in Germania Park neighborhood between Harper and Cleveland Avenue).

The anticipated date of City Council action is May 12, 2025. 

With the permission of the property owner, the applicant is Brett Skilbred. 

The applicant is seeking a Land Use Plan amendment to change the guided land use of the subject properties from Light Industrial to Medium Density Residential. 

The subject properties are located in the Germania Park neighborhood on 8th Avenue between Cleveland and Harper streets. 

The subject properties are vacant parcels. 

The subject properties are presently zoned PI, Planned Industrial. Upon a change in the Land Use designation, and prior to any future development, rezoning of the subject parcels to coincide with any amended land use plan will be necessary.  

There are areas on the subject sites identified as bluffs. The applicant will be required to evaluate the area for the presence of environmentally sensitive areas in conjunction with platting or other moving forward. 

Public utilities will be required for the development of the subject parcels. Discussion in underway on the potential of serving the lots with utilities during the upcoming Germania Park Phase 5 Capital Improvement Program (CIP) projects. 

Mankato Charter section 9.03 - Implementation of the Comprehensive Plan - outlines the process for amendments to the City's Land Use Plan. The link can be found here: https://library.municode.com/mn/mankato/codes/code_of_ordinances?nodeId=CH_CH9PL_S9.03IMCOPL 

The Site Plan and Traffic Advisory Committee provided the following comments at their March 11, 2025 meeting, and the applicant has subsequently acknowledged each comment.  

1. Applicant shall be aware there are currently no public transportation fixed routes that operate in this area. Para-transit options are available and future fixed routes are planned.
2. Applicant shall confirm which housing option (based on the two provided) that will be moving forward.
3. If not already complete, the applicant shall access the eportal and make payment for the notifications sent to the adjacent properties.

 

Brett Skilbred, with permission of properties owned by Pentagon Acquisition, LLC, has applied for a Land Use Plan amendment to change the guided land use from Light Industrial to Medium Density Residential.

Per the City Charter, upon receipt from the City Manager of a proposed comprehensive plan or proposed modification of the existing plan, the Council shall refer such proposal to the City Planning Commission which shall within a time specified by the Council, report its recommendations thereon. After receipt of the recommendations of the Planning Commission, the Council will hold a public hearing on the proposed comprehensive plan or modifications thereof and shall thereafter adopt it by resolution with or without amendment.

The Mankato City Council on February 24, 2025, recommended that the Planning Commission review the proposed land use plan amendment at the regular Planning Commission Meeting on March 26, 2025. 

Land Use Plan Request
The properties included in the request are owned by Pentagon Acquisition, and are described as Lots 1-6, Block 24, Lot 1, Block 9, Columbia Park Addition, Lots 1-8, Block 8, Columbia Park Addition, Lots 9-15, Block 7, Columbia Park Addition, Lot 4, Block 10, Columbia Park Addition, City of Mankato. The properties are located on 8^th Avenue in the Germania Park neighborhood between Harper and Cleveland Avenue. This application request seeks to change the underlying land use for only those properties owned by Pentagon Acquisitions. 

The proposed amendment seeks to change the guided land use designation from Light Industrial to Medium Density Residential, allowing for the construction of single-family dwellings, either attached or detached. This change was considered during the review of the Jefferson Quarry Redevelopment Plan, which envisioned the area as a transitional zone between existing single-family homes and future quarry-related uses. The City Council reviewed and approved the Jefferson Quarry Redevelopment Plan on September 11, 2023.

The Jefferson Quarry Redevelopment Plan process fulfills the neighborhood engagement requirements outlined in the City of Mankato's Land Use Plan amendment process. Through the small area plan, three open houses were held in May 2022, June 2022, and October 2022. One of the findings generated based on the feedback from engagement was that a buffer containing lower-density development compatible with the single-family neighborhood was desired at the location proposed with this land use plan amendment. The preliminary concepts outlined in the Quarry Plan also highlighted the need for alternative housing options, including different mixes of apartments and townhomes. The Jefferson Quarry plan states that the housing type could include both affordable and market-rate housing and that future development would be heavily dependent on the market. 

With this proposal, the applicant indicates that there are two types of developments, each compatible with the land use amendment request and with the previously approved Jefferson Quarry Redevelopment Plan. The first is proposed along the western side of 8th Avenue. The developer has stated that this area will be targeted for attached single-family twin homes and will be included in a future planned unit development zoning request that intends to support density, spacing, and green space. Also, the land use plan request includes several individual parcels on the east side of 8th Avenue matching the original subdivision lot lines. These may be sold individually as conforming lots to include single-family homes or may be part of a larger planned unit development lot with twin homes like what is proposed on the west side of 8th Avenue. The applicant indicates that either way, the development will be marketed as affordable owner-occupied single-family homes with prices targeting buyers with income at or below 115% of the AMI, area median income or statewide median income. It is anticipated that the developer(s) will keep rental options open in the event home sales are not feasible. The income limits for homebuyers (and renters, if necessary) in the development are driven by a combination of the redevelopment plan, desire of landowner and developer(s), as well as potential funding source restrictions. While the plans indicate that the development of the area will be affordable single-family residential, as future plans solidify, additional rezoning, platting, and planned unit development will be required. 

Below are the Goals identified in the City's Land Use Plan. The applicant's narrative describes the Amendment request from Light Industrial to Medium Density Residential and provides the following responses to said goals. 
1. Retain and enhance the character and quality of established areas and revitalize, rehabilitate or redevelop areas where such improvement is required or requested.
 
Response: The area was never really established although included in two subdivisions. Instead, it was connected to the quarry by ownership and remained largely vacant and undeveloped.

2. Promote adequate housing alternatives for all income levels and age groups.
 
Response: The proposed medium density residential development will provide below market affordable housing alternatives to the existing single-family adjacent to the site. The housing will be available for all age groups and demographics.
 
3. Encourage the orderly growth of the community.
 
Response: The development of this site creates a buffer of medium-density single-family homes to separate the neighborhood from Jefferson Quarry as identified in the Stantec development plan. 
 
4. Promote infill development for the purpose of obtaining the maximum utilization of existing infrastructure.
 
Response: The request to develop the subject site would utilize existing and planned infrastructure as well as fill the development gap between the Germania Park Neighborhood and Jefferson Quarry. 
 
5. Promote the preservation of ravines, bluff lines, wetlands, woodlands and other environmentally sensitive areas.
 
Response: The current bluff line created by previous mining in the quarry is currently overgrown and unsafe. The proposed development will delineate and beautify the bluff line while utilizing future common area maintenance funds to design, implement, and maintain a safety system.

6. Encourage landscaping and the attractive design of public and private developments.
Response: A detailed landscape plan will be provided with subsequent required applications to show compliance with the City’s landscaping and buffer standards. The developer also recognizes the benefit to their residents and adjacent properties by providing a nicely designed site.

7. Promote complementary land uses and minimize incompatible land uses.
Response: The proposed change of land use from industrial to residential would support the proposed medium density development. It would also provide a more natural transition of uses from the largely single-family homes in Germania Park to the adjacent future development of Jefferson Quarry. 

8. Promote efficient use of municipal services.

Response: City utilities are located adjacent to the proposed development and there is a planned Community Improvement Project (Germania Park Phase 5) for their extension through the site. Additionally, the proposed site is in a neighborhood already served by municipal bus, snow removal, and maintenance services, among others.

9. Designate adequate vacant land to allow for the growth of residential, commercial, and industrial areas.

Response: The development of this largely vacant land supports the growing demand for residential units, particularly affordable single-family homes.

10. Promote the orderly extension of streets and the development of pedestrian/bike corridors.

Response: 8th Ave is currently unimproved and unpaved. This development supports the Germania Phase 5 CIP which will improve and pave 8th Ave. Additionally, the development will promote a connection to the existing pedestrian/bike corridor adjacent to the quarry along the Minnesota River.

11. Stabilize property values by promoting the application of effective land use controls and development standards.

Response: New investment in the Germania Park Neighborhood will support and potentially improve existing property values. The proposed residential homes will align with existing neighborhood density and building standards.

12. Encourage and promote innovations in development techniques in order to obtain maximum livability and excellence in planning and design for all new developments.

Response: The proposed development has the opportunity to showcase excellence in planning and design to obtain maximum livability by promoting the following innovations in development techniques: coordinated planning of public/private improvements, in-fill of vacant areas in proximity to municipal park and trail amenities, financial support of projects to meet identified community needs, and leveraging existing neighborhood resources like Grace Baptist Church to support the needs of future area residents including after school programs, mentoring, education, and daycare.

13. Promote, maintain, and preserve parks and open space.

Response: N/A - this site is not designated as a public park or open space. The site will provide open green space designated areas for its residents. It will also support the connection between the existing neighborhood park and the future amenities and connections included in the future development of the Jefferson Quarry.

Traffic Trip Generation Memorandum

The applicant has submitted a Trip Generation Memorandum prepared by a professional engineer, which analyzes the traffic and trip generation associated with the proposed development. Because specific development plans for the area are still being developed, the plan contemplates scenarios for 36 single-family attached homes or 20 single-family detached homes.  

The report provides a Trip General Summary Comparison that states if the proposed development consists of 36 single-family attached homes, it is estimated to generate approximately 224 total site trips on the roadway network during a typical 24-hour period. Of the daily traffic volume, it is anticipated that 13 trips (3 entering and 10 exiting) will occur during the weekday AM peak hour and 18 trips (10 entering and 8 exiting) will occur during the weekday PM peak hour.

The report goes on to state that if the proposed development consists of 20 single-family detached homes (assuming 60-ft lots), it is estimated to generate approximately 230 total site trips on the roadway network during a typical 24-hour period. Of the daily traffic volume, it is anticipated that 17 trips (4 entering and 13 exiting) will occur during the weekday AM peak hour and 22 trips (14 entering and 8 exiting) will occur during the weekday PM peak hour.
 
The report further finds that the daily traffic volume generated by the proposed development for either type of land use option is expected to be below the thresholds to require a Traffic Impact Study (TIS) based on the Minnesota Department of Transportation (MnDOT) Access Manual.

The Trip Distribution for the proposed development indicates that site trips will be provided 40% from the north from  3rd Avenue and 60% from the south from 3rd Avenue. Trip ingress and egress to the specific site utilizes the existing neighborhood street network including Cleveland, Harper and Lind. Any future changes to the street network included in the traffic memorandum, such as modifications to Cleveland, Harper or Lind, will require a re-evaluation of the traffic impact information provided. Any costs associated with said changes will be those of the applicant or successors, and a recommended condition in included pertaining to as much. 

The professionally prepared memorandum concludes that, "based on the low trip generation potential for either land use option, and alternative routes provided to access the site, it is expected that the development will have minimal impacts to the surrounding roadway network. Although minimal impacts from the proposed development are anticipated, a more in-depth traffic study would be necessary to determine if the proposed development would introduce any need for intersection geometry or traffic control improvements." For this reason, a recommended condition of approval is that as plans have solidified, and with subsequent future zoning requests, a more in-depth traffic study be provided at the time of application submission to assess the need for intersection geometry or traffic control improvements associated with the subject development. 

Moving forward

In accordance with Mankato's City Charter, on February 24, 2025, the Mankato City Council referred the Land Use Plan request to the Planning Commission for review and consideration. The Commission is required to review the proposal and submit its recommendations to the Council. Following the Planning Commission's review and with their recommendation, the City Council will conduct a public hearing before adopting the proposed plan or modifications by resolution, with or without amendments.

Prior to any future development, the applicant will be required to submit zoning requests for rezoning of the subject parcels, vacation of any desired area, platting, planned unit development requests, and any other applicable zoning requests.

Staff submits the findings that the Land Use Plan Amendment conforms to the following Goals, Objectives and Policies of the Land Use Plan for Medium Density Residential and future review of development proposals will be continued on the following: 

1. Promotes adequate housing for all income levels and age groups. The proposal offers a variety of housing types with affordability components proposed.
2. Supports the goals and objectives of the Mankato Area Transportation and Planning Study and Parks and Open Space Plan. The applicant will be improving the currently platted, unimproved, 8th Avenue local street. Future development associated with the Jefferson Quarry Redevelopment will contemplate new open spaces. The area is currently served by Columbia Park. 
3. Retains and enhances the character and quality of established residential neighborhoods. The applicant is providing a medium-density development between the potential future Jefferson Quarry redevelopment and the existing residential neighborhood.
4. Encourages and promotes innovations in development techniques in order to obtain maximum livability and excellence in planning and design for all new developments. The applicant is proposing a medium-density development providing development techniques suitable for the area.
5. Provides the requirement to study and provide pedestrian connectivity between neighborhoods and destination points where subsequent studies recommend connections, and in keeping with recent Germania Park infrastructure design enhancements. Given that this property is the buffer between the adjacent redevelopment property, the Quarry, and the existing neighborhood, a recommended condition is included that at site development multi-modal plans be provided that contemplate a connection through the neighborhood, this development and into the future quarry. 
6. Achieves the Land Use Plan's residential land use category housing density (number of dwelling units/acre). The Land Use Plan outlines that medium-density residential development should be seven to 10 dwellings per acre, which would equate to 30 to 44 units per acre. As proposed, neither possible housing option will exceed these guided medium-density residential land use housing density standards. 

Additionally, staff submits the findings that the proposed Land Use Plan amendment conforms to the following location criteria for designating residential property in the Land Use Plan. 

1. The property provides a transition between the existing low-and medium-density residential uses and the future Jefferson Quarry redevelopment by providing a medium-density area adjacent to the low-and-medium-density residential areas to the east. The medium-density development will be on both sides of the 8th Avenue corridor on parcels included with this request, and future requests that seek rezoning along the 8th Avenue corridor are anticipated to obtain the same. 
2. The property is adjacent to existing medium-density residential (east) land use designations on the eastern side. The Jefferson Quarry Redevelopment plan outlines that future plans for the quarry area to the west could include Higher Density Residential uses.
3. The property is served by local streets, which provide access to high-volume systems such as arterial or collector streets, accessible without passing through less intense land uses, and provide connections to and through the existing neighborhood. The existing access corridors, Cleveland, Lind and Harper, shall remain in order to provide transportation corridors in keeping with the submitted Trip Generation Memorandum. 
4. The property is located in an area where medium-density residential is compatible with the adjacent land uses, which are low-density residential uses and medium-density land use classification to the east, and currently industrial use and land use designations to the west, north and south. This is based on the location criteria provided in the land use plan.
5. The property is not currently located on a fixed public transportation route. Paratransit is available and serves the neighborhood. 
6. The property is subject to the city sidewalk ordinances and will be required to comply with sidewalk installations and plans in keeping with the recently completed Germania Park CIP projects, the Complete Streets Plan and other applicable plans and policies. Design of the sidewalk and pedestrian connectivity networks will be analyzed during future platting and planned unit development considerations. 

In order for the development to better conform to the goals of the Land Use Plan and the Strategic Plan for the City of Mankato the land use plan amendment is recommended with the following:

1. At the time of any subsequent future zoning requests for the development area, a more in-depth traffic study shall be provided at the time of application submission to assess the need for intersection geometry or traffic control improvements associated with the subject development.
2. The design of the structures in the area shall be thoughtfully integrated into the existing neighborhood and shall provide high-quality design standards.
3. Prior to future development, the applicant will be required to seek rezoning for the subject parcels, as well as any required zoning approvals for the proposed development.
4. The site development shall provide a multi-modal connectivity plan for the site. The plan shall include a future pedestrian connection from the neighborhood into the quarry. 
5.  Any future changes to the street network included in the traffic memorandum, such as modifications to Cleveland, Harper or Lind, will require a re-evaluation of the traffic impact information provided. Any costs associated with said changes and study updates will be those of the applicant or successors.