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05/26/1988 - City Council SpecialSPECIAL CITY COUNCIL MEETING Eagan, Minnesota Thursday May 26, 1988 6:30 p.m. Council Chambers I. ROLL CALL II. JOINT MEETING WITH APC TO DISCUSS ORDINANCE AMENDMENTS AND DEVELOPMENT STRATEGIES Lunch Room III. JOINT MEETING WITH APRC TO DISCUSS A. Blackhawk Park B. Community Center C. Future Athletic Site D. Unisys Trail IV. OTHER BUSINESS V. ADJOURNMENT MEMO TO: HONORABLE MAYOR & CITY COUNCILMEMBERS CHAIRMAN PAWLENTY AND ALL MEMBERS OF THE ADVISORY PLANNING COMMISSION CHAIRMAN CARROLL AND ALL MEMBERS OF THE ADVISORY PARKS AND RECREATION COMMISSION FROM: CITY ADMINISTRATOR HEDGES DATE: MAY 24, 1988 SUBJECT: SPECIAL CITY COUNCIL MEETING SCHEDULED FOR MAY 26, 1988 JOINT MEETING WITH APC The City Administrator's office has learned today that the consulting firm of Short Elliot and Hendrickson will not be ready to present a status report to the City Council and Planning Commission regarding the master transporta- tion plan. Our Director of Public Works was under the impression that SEH would be far enough along to present findings and anticipated improvement needs at this special workshop session, however, SEH has asked for an extension of time and is planning to present the data at the June 24 Planning Commission meeting and July 5 City Council meeting. It will be determined at those meetings whether a joint meeting of the City Council and Planning Commission is needed later in July. Attached for the City Council and Planning Commission is a copy of a memorandum prepared by SEH that provides a summary of the Eagan Comprehensive Transportation Plan. Since this hour was scheduled for both the Planning Commission and City Council, the two bodies will meet and use this time to discuss various ordinance amendments that are being considered by the City Council that will enhance the quality of community development and change some development strategies. JOINT MEETING WITH THE APRC Attached for City Council and APRC review is a packet of information pre- pared by the Director of Parks and Recreation. The main focus of the meeting is to discuss progress on the community center, however, other items have been added to allow input and direction by the City Council such as the Blackhawk Road access, future athletic site update and the Unisys trail alignment. OTHER BUSINESS Since the City Administrator covered his list of additional items at the Monday, May 23 meeting, there is no Other Business anticipated for the meeting on Thursday. ice4 City Administrator cc: Ken Vraa Dale Runkle SPECIAL CITY COUNCIL MEETING Eagan, Minnesota Thursday May 26, 1988 6:30 p.m. Council Chambers I. ROLL CALL II. JOINT MEETING WITH APC TO DISCUSS ORDINANCE AMENDMENTS AND DEVELOPMENT STRATEGIES Lunch Room III. JOINT MEETING WITH APRC TO DISCUSS A. Blackhawk Park B. Community Center C. Future Athletic Site D. Unisys Trail IV. OTHER BUSINESS V. ADJOURNMENT MEMO TO: HONORABLE MAYOR & CITY COUNCILMEMBERS CHAIRMAN PAWLENTY AND ALL MEMBERS OF THE ADVISORY PLANNING COMMISSION CHAIRMAN CARROLL AND ALL MEMBERS OF THE ADVISORY PARKS AND RECREATION COMMISSION FROM: CITY ADMINISTRATOR HEDGES DATE: MAY 24, 1988 SUBJECT: SPECIAL CITY COUNCIL MEETING SCHEDULED FOR MAY 26, 1988 JOINT MEETING WITH APC The City Administrator's office has learned today that the consulting firm of Short Elliot and Hendrickson will not be ready to present a status report to the City Council and Planning Commission regarding the master transporta- tion plan. Our Director of Public Works was under the impression that SEH would be far enough along to present findings and anticipated improvement needs at this special workshop session, however, SEH has asked for an extension of time and is planning to present the data at the June 24 Planning Commission meeting and July 5 City Council meeting. It will be determined at those meetings whether a joint meeting of the City Council and Planning Commission is needed later in July. Attached for the City Council and Planning Commission is a copy of a memorandum prepared by SEH that provides a summary of the Eagan Comprehensive Transportation Plan. Since this hour was scheduled for both the Planning Commission and City Council, the two bodies will meet and use this time to discuss various ordinance amendments that are being considered by the City Council that will enhance the quality of community development and change some development strategies. JOINT MEETING WITH THE APRC Attached for City Council and APRC review is a packet of information pre- pared by the Director of Parks and Recreation. The main focus of the meeting is to discuss progress on the community center, however, other items have been added to allow input and direction by the City Council such as the Blackhawk Road access, future athletic site update and the Unisys trail alignment. OTHER BUSINESS Since the City Administrator covered his list of additional items at the Monday, May 23 meeting, there is no Other Business anticipated for the meeting on Thursday. icelA City Administrator cc: Ken Vraa Dale Runkle MEMORANDUM ENGINEERS ■ ARCHITECTS ■ PLANNERS 222 EAST LITTLE CANADA ROAD, ST PAUL, MINNESOTA 55117 612 484-0272 MEMORANDUM TO: CITY OF EAGAN CITY COUNCIL AND PLANNING COMMISSION MEMBERS FROM: BOB BYERS, SHORT-ELLIOTT-HENDRICKSON, INC. DATE: MAY 20, 1988 SUBJECT: EAGAN COMPREHENSIVE TRANSPORTATION PLAN BACKGROUND A joint transportation forecasting study was initiated in late 1987 between Dakota County and the cities of Eagan, Inver Grove Heights and Apple Valley. Its primary purpose is to evaluate future land use development trends and to assess the traffic impacts from this development. WHY NEEDED: The need for the study resulted from the current rapid pace of development and the need to evaluate the required roadway improvements to support this development. The City and the County were interested in establishing a process where regional and local site specific impacts could be reviewed and improve- ments could be coordinated between jurisdictions. UNIQUE APPROACH: This study is somewhat unique due to its comprehensive nature and the procedures which are being used to analyze future growth. The individual land use plans of all communities within Dakota County have been included. The process has the ability to track accumulative site impacts over time as phased development or multiple projects occur. A microcomputer planning package is being used to provide the tools necessary to evaluate individual site and total transporta- tion system needs. It has the ability to compare the effects of alternative land use plans and can be used in the on-going evaluation of the City's comprehensive land use plan. Results of the process can be used to evaluate potential plan amendments and can provide the basis for later detailed traffic operations studies. SHORT ELLIOTT HENDRICKSON INC. ST PAUL, MINNESOTA 1 CHIPPEWA FALLS, WISCONSIN THE TRANSPORTATION PLANNING PROCESS PROCESS STEPS: The planning process involves four major steps: - Trip Generation - Travel Distribution - Traffic Assignment - Roadway Operations Evaluations Trip Generation involves estimating how many trips occur on a daily average from existing and future developments. In order to computerize this information, Eagan was divided into a number of Traffic Analysis Zones (TAZs). The TAZ boundaries are shown an the attached exhibit. Travel Distribution is the process of estimating where trips from each TAZ will go. The location of employment opportunities, shopping/retail services and residential dwellings are the most important factors in this determination. Traffic Assignment is the tabulation of trips between zones on the roadway system. Typically, these traffic volumes are compared to the existing average daily traffic counts made periodically by the City and the County. Due to limitations of the computerized process, not every street in Eagan's system is included. Generally local residential streets are combined since they are typically low volume roads. An attached exhibit shows the Eagan computer roadway network. An evaluation of roadway operations is the final step in the planning process. This review examines the available traffic carrying capacity of the roadway system and identifies areas which are deficient. These deficient locations are evaluated to determine what types of mitigating measures and improvements are required to provide adequate operations. The results of this step are then used as part of the prioritization of the City's and County's annual Capital Improvements Programs (CIP). The Comprehensive Transportation Plan will also include a number of other components: - A study of potential mitigating effects of providing transit services and travel demand strategies such as car pooling and staggered work hours. - A financing plan for required roadway improvements and transit/travel demand strategies. - A section on policies for the installation of traffic control devices, signing, and pavement markings. - A section on general roadway design guidelines. - Sections including guidelines for the development of pedestrian walkways and bike trailway networks. WORK COMPLETED TO DATE: Most activities to date have been orientated towards calibrating the computer model so that it can replicate the existing average daily traffic counts from the City and County. City planning staff have provided existing land use data and other information regarding street configurations and typical travel patterns which were used as inputs to the computer. After completion of the calibration of the computer model, future land use information was provided by the staff and added to the existing developments. We are currently evaluating the impacts on Eagan's roadway system given the anticipated growth by year 2005. All adjacent communities have also input their land use expectations and some of this traffic uses streets within Eagan. STUDY SCHEDULE We anticipate the following activities to occur over the next few months: May - June: Evaluation of Future Roadway Operations Late June - Early July: Status Report to City Council and Planning Commission to describe findings and anticipated improvement needs July: August: Refinements to list of required roadway improvements and other mitigating measures Adoption of the Comprehensive Transportation Plan by City Council Eagan staff members have been extremely helpful throughout the study effort. They have been participating on a project review committee which has been meeting on a monthly basis. As part of this planning study, the staff will be instructed on the use of the computer planning model for on-going use in day-to-day reviews of proposed developments and possible comprehensive plan revisions. After completion of the plan, Eagan staff will have access to all the tools which were used during the study. Dakota County will maintain the complete county -wide computer model using information provided by the City. Their staff is available to provide assistance in using the model and with any trouble shooting of the planning process or with the evaluation of the results. To facilitate this assistance, there is considerable interest in establishing an on-going committee of City and County staff members to periodically review the planning process inputs and to handle questions regarding its use. 3 1 t ti U �1 3 iea 0 0 t U O U Q '5'e 8 ismomummimping —_____ _ AGENDA JOINT CITY COUNCIL AND ADVISORY PARKS AND RECREATION COMMISSION THURSDAY, MAY 26, 1988 7:30 P.M. 1. Blackhawk Park - Road Access 2. Community Center A. Organizational Approach - Focus Teams B. Architectural Program Review C. Formation of Citizen Committees - Reaction Committee D. Philosophical Foundations 1.) Operation Costs 2.) Fees and Charges 3.) Community Room Use and Spirits 4.) Advertising and Donations E. F. G. Bond Referendum Planning Revenue Bond and Space Needs "Brain Storming" and other Good Ideas 3. Long Range Need of City - Site Planning of Civic Center 4. Future Athletic Site - Update and Report 5. Unisys Trail - Pilot Knob Park/Quarry Park MEMORANDUM TO: CITY COUNCIL AND ADVISORY PARKS AND RECREATION COMMISSION FROM: STEVE SULLIVAN, LANDSCAPE ARCHITECT/PARKS PLANNER DATE: MAY 23, 1988 RE: BLACKHAWK PARK - SOUTH ACCESS ROAD BACKGROUND The Council and Commission has previously reviewed the southerly primary access to Blackhawk Park at several past meetings. The access was again reviewed in conjunction with the zoning and preliminary plat of Blackhawk Ponds development. The developer is providing an outlot which will serve as the first leg of the access road. The developer also agreed to provide a temporary easement for the road construction and side slopes incurred. The access road would continue through the outlot and across approximately 400 lineal feet of an adjacent privately owned parcel to Blackhawk Park. Staff has had the access road surveyed and design alternatives prepared for review. ISSUES The Council and Commission should review and make appropriate recommendations to the following issues: 1. What design alternative best serves the interests of the City and Blackhawk Park. 2. What method and strategy should be pursued in the public acquisition of the private parcel allowing for the continuation of the park access road. 3. What is the appropriate time frame for construction. ISSUE #1 There are three design alternatives. Design alternative A minimizes the necessary acquisition area from the private parcel but Outlot B, Blackhawk Ponds Addition needs to be expanded to accommodate the road. Design Alternative B places the road within Outlot B, eliminating the need for acquisition of additional land from Blackhawk Ponds. Design Alternative C also places the road within Outlot B but reduces tree loss by including retaining walls vs. slopes. Staff will present these options during the May 26th joint meeting. Staff has field staked the road alignment and slope limits of Alternate A. This was reviewed in the field with Paul Thomas of Meritor Corporation. Mr. Thomas requested that City staff design Alternatives B and C. Staff has complied with these wishes and will be jointly evaluating them prior to the May 26th joint meeting. ISSUE #2 Staff has previously approached the owner of the private parcel to explore the feasibility of acquisition. The necessary acquisition for the access road is approximately 2 -3 acres. The 42 acre parcel would be subject to a parkland dedication at the time of development. Staff does not have the actual time frame for development. At the time of the City's first approach, the landowner had no interest in providing early parkland dedication and asked for $40,000 per acre. This sum strongly exceeds current market value for equivalent undeveloped land. Discussions have not continued. In order to place a continuous access road to Blackhawk Park, the acquisition of the unobtained parcel is necessary. The Council and Commission should discuss and make a recommendation regarding the method and strategy for effective acquisition. The methods for acquisition include: 1. Purchase by negotiation. 2. Purchase by condemnation. 3. Acquisition by parkland dedication. In regards to the strategy, the Council and Commission may consider only one method or a sequencing of several methods (i.e., if this occurs, we would proceed with this option). Timing for the construction of the access road will be subject to these recommendations. ISSUE #3 Approximately 250 lineal feet of access road could be constructed presently, subject to Blackhawk Ponds providing additional area within Outlot B and the applicable slope easements. This section would run from Conklin Lane to approximately 150' short of the privately owned parcel. The developer of Blackhawk Ponds had requested access road construction at the earliest opportunity for several reasons; this had to do with the marketing and sale of the adjacent lots. In order to construct this segment there would need to be imported approximately 5,000 cubic yards of fill. This import equates to $15,000. A temporary storm sewer would need to be built at the end of the road segment to pipe storm water to the adjacent pond. Staff estimates the cost to be approximately $1,500 - $2,000. This storm sewer would be removed upon future continuation of the road. As an alternative, once acquisition of the private parcel has occurred, the access road could be constructed in its entirety. Common excavation within the park would provide the necessary fill for the road embankment. The 5,000 cubic yards of fill for the initial 250' would cost approximately $6,500.00 versus the imported cost of $15,000.00. The temporary storm sewer would not be necessary. The unanswered question is the time frame for acquisition, which in turn allows for complete road construction. FOR COUNCIL AND COMMISSION ACTION The Council and Commission may consider the following recommendations: 1. To provide staff with direction regarding preferred design alternative for Blackhawk Park access road. 2. To determine the most effective method and strategy for the acquisition of the privately owned parcel. 3. The 250' segment of the access road be constructed prior to acquisition of the privately owned parcel or The access road be constructed in its entirety once acquisition of the privately owned parcel has occurred. 3/21/88 COMMUNITY CENTER FUNCTION: Ice Arena MAJOR PROGRAM USE: Hockey practice and games,figure skating, learn to skate programs, Ice Show, ice rental, open skating, broomball, summer skating and hockey school PROGRAM OPTIONS: Curling, dry floor events and indoor soccer PURPOSE: The ice arena shall provide an ice skating surface usable for skating programs and events. The arena should provide for spectator seating, of -ice skate changing, team rooms, dressing rooms (ice shows), and sufficient space for mechanical equipment, storage, concessions, officials, etc. GENERAL FEATURES: o Visual monitoring by parents/staff o Seating to accomodate 800 people. Additional standing room behind seats should be considered. o Lighting for hockey - figure skating and ice shows o Spot light location for future use with ice show. o Sound system with access by rink side for figure skating and hockey o Team player benches, penalty box,minor officials, scoreboard control o Ice surface 200' x 100' o Hockey boards with access gate, plexaglass/herculite o Concrete floor for possible dry floor events. o Provision for "curtain" - ice show o Scoreboards/sound system/cable T.V. circuits o Hockey/ice show ticket sales o Acoustics USER/FACILITY RELATIONSHIPS: o Access to team rooms/dressing rooms, referee room, pro/instructor's office o Immediate access to zamboni room o Desirable access to refrigeration room o Seating area with access to concessions o Skate changing area for general skating/access to restrooms o Office area o Separation of spectator from ice users o Access to restroom for spectators o Access for spectators to bleacher from lobby 1 FUNCTION: MAJOR PROGRAM: PROGRAM OPTION: PURPOSE: GENERAL FEATURES: 0 0 0 0 0 0 0 Studio Ice Arena; 2nd ice sheet Skating instruction, broomball, mite hockey, patch, skating party 2nd Ice Sheet or future phase Skating surface shall be used for instructional programs,hockey and figure skating. Use of the ice sheet primarily for program which doesn't need large ice sheet No seating required Lit to typical lighting standards Scoreboard No team bench, penalty boxes, or officials area Enclosed by hockey boards Small stand only viewing area Sound system USER/FACILITY RELATIONSHIP: o Access to general skating o Change area for general viewing public and skaters o Access to Zamboni room o Proximity to refrigeration room 2 FUNCTION: Zamboni Room MAJOR PROGRAM USE: None - Maintenance Space PROGRAM OPTIONS: None PURPOSE: GENERAL FEATURES: The Zamboni room/space shall be reserved for preparation and maintenance of the Zamboni resurfacer o Second access; security monitoring o Hot!!, water for resurfacer, check requirements for temperature and volume o 2-1/2" water supply o Sufficient room height for snow dump o Drain Pit - large enough for snow o Outside access through overhead door desirable o Space for maintenance or equipment o Storage area for ice maintenance equipment and Zamboni o Storage for hockey game; practice and broomball nets o Room "at grade" or slope not greater than 2% o Thermostatically controlled environment ROOM RELATIONSHIP: o Direct access to ice rink(s) o Desirable access to building maintenance equipment o Desirable access to building mechanical room o Direct access to exterior for snow dumping NOTE: Serious consideration to the "grouping" of the Zamboni refrigeration/mechanical room (heating, ventilization, etc.) SQUARE FOOTAGE: 3 FUNCTION: Refrigeration Room MAJOR PROGRAM USE: None - designated space for refrigeration equipment PROGRAM OPTIONS: Consideration for sizing of equipment/room for 2nd ice sheet GENERAL FEATURES: NOTE: RELATIONSHIP: SQUARE FOOTAGE: o Sized to accomodate refrigeration equipment and provide enough space for maintenance and repair o Lighting levels "high" o Desired access to Zamboni room o A "secured" access from public o Heat reclaimation system possible o Direct access to outside desirable, but not necessary o Control read-outs monitored in general office area o Security system Refrigeration room/Zamboni area could be located adjacent to each other Close access to ice rink and Zamboni room and swimming pool for heat reclaimation 4 FUNCTION: Team Rooms (4) MAJOR PROGRAM USE: Space will be used primarily for high school and youth teams for skate changing and dressing for hockey practice, games/tournaments PROGRAM OPTIONS: Space could also be used for costume changes for ice shows; teaching areas for hockey schools. PURPOSE: GENERAL FEATURES: RELATIONSHIP: SQUARE FOOTAGE: This space shall be used primarily for skate changing and dressing by hockey teams for practice, games and tournaments and as a rest area between game periods. Other groups, i.e. broomball teams, youth teams, will also use. o Team benches/overhead rack for storage of clothes, etc. o Heating o Access to restroom facilities o Access to ice rink o Flooring for skates o Space for storage and/or for hanging of uniforms o Transition space for scheduled teams coming and other teams leaving o Vandal resistant materials o Lighting o Access to team player benches or ice surface o Convenient access to "Behind the Curtain" area for ice shows o Convenient access to main building access o Separation of spectators from players when used for hockey games 5 FUNCTION: Reception/Lobby MAJOR PROGRAM: OPTIONS: PURPOSE: GENERAL FEATURES: SQUARE FOOTAGE: Provide transition space for user coming or leaving and a place to register, pay program fees - to come in contact with the building's programs Area from which seasonal/part-time staff react with administrative procedures/work schedule, etc. Provide space for immediate contact withpublic for information, program registration, fee collection and monitoring of building activity. o Space should be friendly, comfortable for building user o Provide comfortable waiting space o Act as orientation or focal point for users; acts to separate user from different building uses • o Good views of lobby and building access from reception area o Provide private/secure space for staff o Provide control area for the monitoring of building systems o Possible ticket office - hockey games, events o Heat -Light -Cooling and Sound Control important o Skate rental for ice arena o Provide information for public - brochures 6 FUNCTION: MAJOR PROGRAM: PROGRAM OPTIONS: PURPOSE: GENERAL FEATURES: 0 0 0 0 0 0 0 0 0 0 0 0 SQUARE FOOTAGE: Administrative Offices Provides space for direct administration of facility and recreation staff Administration space for entire department Provide space for administration and facility operations;including area of immediate contact with public for information, program registration, fee collection, monitoring of building activities, staff control/direction. Provide space for other park and recreation staff not directly related to community center operations. Access to Public - visibility Good view of public and program space Private/secure space for staff Control area, monitor building use and functions Light, sound system controls, closed circuit TV Reception space/waiting area - acoustical consideration important Provide space for lunches Heat, lighting, cooling important Good views and/or access to outside, pool, arena and building function for Community Center personnel Good access to public areas - next priority Should visually relate to building entrance Information system for brochures and bulletins Undetermined until staff size and total components of facility are known. Individual staff relationships, space, to be determined 7 FUNCTION: Community Room/Multi-Use Room MAJOR PROGRAM: PROGRAM OPTIONS: GENERAL FEATURES: NOTE: Meeting, lectures, Recreation Programs, Banquets The Community Rooms are to provide sufficient space for multiple uses, including meeting, recreation programming (define recreation program - table tennis, tumbling) and events in which food service may be needed o Seating space to accomodate 200-250 at tables o Generally quiet space o Access to kitchen/food service area o Sound system o Provision for showing of slides,movies, etc. o Storage space for tables, chairs, "stage" o Direct access to outside/people space or plaza o Utilize room dividers for space separation and use diversification Kitchen space is intended to be used as re- heat/keep cold space, rather than as a cooking kitchen, i.e. catering kitchen SQUARE FOOTAGE: o Storage a must for program supplies/equipment o Variable lighting control 8 FUNCTION: Sports Room MAJOR PROGRAM USE: Archery, golf, baseball PURPOSE: GENERAL FEATURES: The room is to be adaptable (seasonally) to allow for indoor use and instruction pertaining to golf, archery and baseball (hitting/pitching). The room will have to provide for some group instruction, nets, good - even lighting and sound absorbent materials o Nets for golf, archery and baseball o Good lighting o Space for instruction o Seating (bleachers) o Storage space for archery targets, baseball/softball pitching machine, portable mound, matts for golf o Floor material - soft o Curtains (nets) which can be pulled into play o Sound absorbing material o 3 phase electrical lights ROOM RELATIONSHIP: No special relationship at this time SQUARE FOOTAGE: To be determined 9 FUNCTION: MAJOR USES: PROGRAM OPTIONS: PURPOSE: GENERAL FEATURES: SPECIAL Swimming Pool Recreational swim/recreational sports/swim lessons, synchronized swim Swim club use The primary objective is to provide an opportunity for recreationalswim: open swim, lap swimming, team or other "special" recreation swimming that may be identified by special designation. Sports such as water polo, scuba lessons, (practice), synchronized swim, etc should be provided for. Use by swim clubs and swim teams is considered a strong possibility. However, this should be considered as secondary. Swim lessons are likely. Swim activities shall be fun and family oriented. To be determined. However, because this is a recreational pool, emphasis must be on Fun! Consider a water slide, water jets, a "rain drop". A separate "wading pool", for small children considered. Exposure to the south/west, in order to maximize sun and create a feeling of openness, must be considered; also consideration should be given to an outside deck. Option for a "wave pool" to be considered CONSIDERATION: The Architect will investigate the possibility of an indoor/outdoor pool by considering a "bubble" roof, moveable partitions, or other state of the art technical advancements which could provide for an open pool in the summer, an indoorpool in the winter/fall. o Moveable bulk head o Zero depth pool design o Pool water to be of level/deck design 10 ROOM RELATIONSHIPS: o Direct access to locker rooms o Consideration for separate adult and youth locker rooms o Access to locker room via central control desk o Pool filteration, equipment room should have close relationship to the buildings mechancial systems o Provide for lifeguard office/first aid station o Storage space o Seating or viewing NOTE: Program statements for locker rooms, lifeguard office, etc., to be prepared later 11 FUNCTION: Activity Gymnasium MAJOR PROGRAM USE: Space shall provide for basketball court(s), volleyball courts allowing flexible use for other programs, including use for gymnastics, wrestling, aerobic excercise, tumbling, soccer, dance class OPTIONS: GENERAL FEATURES: A running/job track around perimeter of gym floor, or asuspended track will begiven strong. consideration. o A wooden floor or suitable alternative i.e. carpeting o Adjustable basketball heights/or portable basketball standard o Space for a minimum number of spectators - chair set o Storage space adequate to meet the needs of programs - gymnastics, volleyball o Lighting, sound control o Ventilation of locker rooms ROOM RELATIONSHIP: o Good access to dressing room and showers, with strong consideration for joint use of locker rooms with swimming pool o Strong relationship to "Fitness Area". 12 FUNCTION: Fitness Area MAJOR PROGRAM USES: Aerobic exercise and exercise equipment PROGRAM OPTIONS: PURPOSE: GENERAL FEATURES: Classes for tumbling, dance and movement classes Provide space for "fitness" activities,which is flexible enough to allow for a variety of activities; moveable partition could allow for two small groups or one large groupor as a necessary division between the two uses. o Flexible floor with bounce and "give" o Sound system for music o Equipment area open o Storage space for tumbling mats o Stretching bar o Bulletin board for announcements o Good sound control/lighting o Controlled access ROOM RELATIONSHIP: Access to gym, track and locker rooms 13 CONCESSIONS Option One: Purchase a franchise for the City from a national chain. The benefits are knowledgeable assistance with location, layout, products and management of the concession operation. Option Two: Design and build a concession area independent of any fran- chise. The benefits are independence of operation, products and layout. Major Program Use: General Features: Provide treats, snacks, food that may be purchased by Com- munity Center users, spectators or department program par- ticipants. o All City codes and State Health Department licensing requirements will be met by the design of the conces- sion area. o All concession equipment, wall treatments, counter materials, floor surfaces and storage areas will con- form to State Health Department standards. o Colors will be bright and light levels suitable for work and service to customers. o Storage area may consider proximity to community room kitchen. o Access for delivery of supplies should be considered to be directly to the outside. o Consideration should be made toward more than one con- cession area or carts that may be used for concessions in the various elements of the Community Center. 1 Room Relationships: o Consideration should be made regarding visibility of the concession area, relationship to other elements of the Community Center. o Traffic flow from major spectator events should be planned to not interfere with other regular Community Center activities in progress. Program Accessories: o Computerized inventory control should be an option to be considered o Availability of wine and beer, for sale or as an al- lowed program option should be addressed. o A television monitor is to be considered for the con- cession area. Revenue Generation: o Sale of all products will be profit motivated. o Marketing of the concession area is to be all on-going consideration. Maintenance Needs: o Maintenance supplies storage and the maintenance of the concession is to be considered as the function of the concession staff. Staffing Requirements: o Manager(s) o Part-time service staff 2 COMMUNITY CENTER FUNCTION: Ice Arena MAJOR PROGRAM USE: 3/21/88 4/25/88 Revision 5/12/88 Revision Hockey practice and games, figure skating, learn to skate programs, ice show, ice rental, open skating, broomball, summer skating and hockey school. PROGRAM OPTIONS: Curling, dry floor events and indoor soccer. PURPOSE: GENERAL FEATURES: The ice arena shall provide an ice skating surface usable for skating programs and events. The arena should provide for spectator seating, off -ice skate changing team rooms, dressing rooms (ice shows), and sufficient space for mechanical equipment, storage, concessions, officials, etc. o Visual monitoring by parents/staff o Seating to accommodate 1000 people. Additional standing room behind seats should be considered. Expansion of seating to be considered with use of bleachers/portable stands. o Seating shall be of permanent design allowing for good sight lines; molded plastic seats. o Seating on both sides of arena should be considered. Seating need not be split equally. o Lighting for hockey - figure skating and ice shows. Lights to be individually controlled metal halite; AND/OR Spot light location for future use with ice show and back-up fluorescent lights/secondary light system. Energy management. o Sound system with access by rink side for figure skating and hockey/announcing/music - easy access/easy volume control. o Team player benches, penalty box, minor officials, scoreboard control. o Ice surface 200' x 100' o Hockey boards with access gate, steel frame, plastic board face and tempered glass. End of rink shall have "higher" glass than sides. Also 5/8" on ends and 1/2" on sides. o Concrete floor for possible dry floor events. o Provision for "curtain" - ice show which can be raised and lowered. o Scoreboards/sound system/cable T.V. circuits. o Hockey/ice show ticket sales. o Acoustics shall be given attention to insure high quality sound. o Arrangement for player benches, penalty box, etc. shall be of "standard design". Building design shall be of consideration in this determination USER/FACILITY RELATIONSHIPS: o Access to team rooms/dressing rooms, referee room, pro/instructor's office. o Immediate access to zamboni room. o Desirable access to refrigeration room. o Seating area with access to concessions o Skate changing area for general skating/access to restrooms. o Office area. o Separation of spectator from ice users. o Access to restroom for spectators. o Access for spectators to bleachers from lobby. o Wire for telephone access/radio broadcast. o Consideration for "Press Box" and T.V. communication locations. o Provide for theatrical bar lights for future addition for ice show. o Control light panel location for ice show. o "Harness system" for figure skating instruction. FUNCTION: Team Rooms (4) MAJOR PROGRAM USE: PROGRAM OPTIONS: PURPOSE: GENERAL FEATURES: RELATIONSHIP: SQUARE FOOTAGE: 3/21/88 4/25/88 revision Space will be used primarily for high school and youth teams for skate changing and dressing for hockey practice, games/tournaments. Space could also be used for costume changes for ice shows; teaching areas for hockey schools. This space shall be used primarily for skate changing and dressing by hockey teams for practice, games and tournaments and as a rest area between game periods. Other groups, i.e. broomball teams, youth teams, will also use. o Provide restroom/shower room for team room in common; do not over design. o Team benches/overhead rack for storage of clothes, etc. o Heated space. o Access to restroom facilities o Access to ice rink o Flooring for skates o Space for storage and/or for hanging of uniforms o Transition space for scheduled teams coming and other teams leaving o Vandal resistant materials o Lighting; resistant to vandalism o Each team room shall have separate door access o Team room shall be in close proximity to office or control area. o Interior surfaces shall be concrete block - painted. o Drinking fountain shall be in close proximity, but not in team rooms. o Access to team player benches and/or ice surface. o Convenient access to "Behind the Curtain" area for ice shows. o Convenient access to main building access. o Separation of spectators from players when used for hockey games 3/21/88 4/25/88 revision 5/12/88 revision FUNCTION: Zamboni Room MAJOR PROGRAM USE: None - Maintenance Space PROGRAM OPTIONS: None PURPOSE: The Zamboni room/space shall be reserved for preparation and maintenance of the Zamboni resurfacer. GENERAL FEATURES: ROOM RELATIONSHIP: NOTE: o Provide sufficient area for outside snow storage/drain. o Outside exterior access; security monitoring o Hot!! water for resurfacer, check requirements for temperature and volume. o Sufficient room height for snow dump - 14' o Provide for good drain. 10' long/12" deep - 12" wide. o Outside access through overhead door. 10 ft./electrically operated door - "garage door opener" o Space for maintenance of equipment/or separate room. o Storage area for ice maintenance equipment and Zamboni. o Storage for hockey game; practice and broomball nets. o Room "at grade" or slope not greater than 2%. o Thermostatically controlled environment. o Separate propane storage space (outside) o Direct access to ice rink(s) o Desirable access to building maintenance equipment o Desirable access to building mechanical room o Direct access to exterior for snow dumping o Access to rink shall be at rink side versus end of rink, as a preference. o Zamboni room shall be close to office/control area. o Minimum size shall be 24 x 24 Serious consideration to the "grouping" of the Zamboni refrigeration mechanical room (heating ventilization, etc.) SQUARE FOOTAGE: Minimum size shall be 24 x 24 3/21/88 4/25/88 revision FUNCTION: Refrigeration Room MAJOR PROGRAM USE: None - designated space for refrigeration equipment PROGRAM OPTIONS: Consideration for sizing of equipment/room for 2nd ice sheet. GENERAL FEATURES: NOTE: RELATIONSHIP: SQUARE FOOTAGE: o Sized to accommodate refrigeration equipment and provide enough space for maintenance and repair. o Lighting levels "high" o Desired access to Zamboni room. o A "secured" access from public. o Heat reclamation system possible o Direct access to outside desirable, or in close proximity. o Control read-outs to be monitored in general office area. o Security system o Room shall be vented for fresh air to prevent heat build-up from compressors. Refrigeration room/Zamboni area could be located adjacent to each other. Close access to ice rink and Zamboni room and swimming.g pool for heat reclamation 4/22/88 ARENA COMMENTS o Administration of building use, in registrations, season ticket sales, ice rental, etc. shall be separate from building operations though function such as making work assignments, posting of employee notices, janitorial needs, etc. o Vending might be enclosed in an alcove. o Provide for dumpster/waste o Scoreboard should consider "light bars" for system of showing time/score as manufactured by Dakotronics. o Consideration for ice cover. o Storage of props for ice show. o Energy management for heat reclamation from compressors. o Review light fixture at New Hope as an example of good lighting even distribution, intensity. Metal halite fixture or white high pressure sodium. o General need for storage and maintenance is great!! Too often under built. o Skate sharpening by "vending machine" or office staff. o Need for heating system sub -grade to prevent permafrost. o Consideration for mirror or stainless steel mirror for figure skating instruction. o Identify space for costume storage for ice show and ice show props. o Concern for rust/corrosion with steel pipes in floor. o Dehumidification system - Critical o Consider Co -Ray Vac heating in spectator area. 5/12/88 FUNCTION: Future 2nd ice sheet MAJOR PROGRAM: Skating instruction, broomball, mite hockey, patch, skating party. PROGRAM OPTION: 2nd Ice Sheet or future phase; 6 months of ice will permit for other uses, such as soccer. PURPOSE: Skating surface shall be used for instructional programs, hockey and figure skating. This is intended to be a "limited" use facility; primarily used for practice. GENERAL FEATURES: o Limited seating required o Lit to typical lighting standards o Scoreboard o Team bench, penalty boxes, or officials area o Enclosed by hockey boards o Small stand only viewing area o Sound system o Four team rooms o Limited heating o Size - 200 x 100 o Storage space for hockey goals, etc. USER/FACILITY RELATIONSHIP: o Access to general skating changing area o Access to Zamboni room/shared with main facility o Proximity to refrigeration room o Access to team rooms o Access to rest room 5/12/88 FUNCTION: Skate Changing Area MAJOR PROGRAM PURPOSE: Area is to be used by general public skaters for skate changing. Area can also be used for general viewing area, waiting area or other general user. GENERAL FUNCTION: o Provide for skate floor. o Normal lighting conditions. o Desirable to maintain warmer air temperature than in ice arena. o Atmosphere shall be "bright", colorful o Provide for skate, shoes and clothes storage o Place to sit for skate changing. o Area should be controllable; that is, moving people in and out for next ice use. RELATIONSHIP: o Accessible to skate rental/skate sharpening. o Accessible to vending machines/concessions. o Access to rest rooms. A. 5/12/88 FUNCTION: Ice Arena Control Office MAJOR FUNCTION/USE: This is to be the "Control" station for access to ice arena for open skating, figure skating and ice rental. This area could be considered for inclusion into other office space. Important to separate functions; administrative vs. operational function. GENERAL FEATURES: o Payment of admittance fee. o Provide for skate rentals (built-ins) o Counter space for handling of admissions o Control of lights from this space, as well as sound system controls. o Energy management read out located here. o Telephone o Public access to counter o Skate sharpening could be located here o Normal heat, light, electrical outlets. RELATIONSHIP: o View of skating rink and lobby for skate change. o View of concession/vending. o View of reception room desirable for control. 5/12/88 FUNCTION: Officials/First Aid Room MAJOR PROGRAM/PURPOSE: This room shall provide "double duty"; or dual use. The room will be for officials (hockey) and as a minor first aid room. Seriously injured individuals are to be transported directly to medical facilities. GENERAL FEATURES: o Lockers for hockey officials clothing. o Sufficient room for 3 officials - 10 x 10 o Skate flooring o Normal lighting levels - heating o Provide a clock o A lockable room - with control access o First aid supply area o Chairs/cot for treatment purposes. o Storage for blankets, etc. o High intensity light o Paper toweling RELATIONSHIP: o Reasonable access to ice rink. o Reasonable access to rest room. 5/12/88 FUNCTION: Room for skating instructors MAJOR PROGRAM FUNCTION: Room will be used primarily by the skating instructors for changing of skates, clothes and dealing with skating school issue. No secondary function yet defined. GENERAL FEATURES: o Locker for skating instructors - security o Telephone or telephone jack o Skate flooring o Heat - lights o Counter for use as desk top/layout space o A lockable cabinet o Chairs or benches for clothes changing. o A message center - bulletin board interior and exterior. o Desirable - view of ice arena. RELATIONSHIPS: o Proximity to rink access o In reasonable proximity to main administrative office. 422 85 ADMINISTRATIVE OFFICES MAJOR PROGRAM: Provide space for direct administration of facility and recreation staff. PURPOSE: Provide space for administration and facility operations; including area of immediate contact with public for information, program registration, fee collection, monitoring of building activities, staff control/direction. Provide space for other parks and recreation staff not directly related to community center operations. GENERAL FEATURES: o Administration space for existing staff: - Director of Parks and Recreation - Two Recreation Program Supervisors -Landscape Architect/Parks Planner - Secretary - Clerk-Typist - Two Interns - Landscape Aid and Drafts Person o Administration space for additional staff anticipated: - Recreation Supervisor -Community Center Manager -Aquatic Director - Community Center Clerical - Separate Space o Provide for Staff expansion and interns. o Seasonal/part-time employees shall not find it necessary to come into the administrative office for work direction, etc. A separate "work center" location in another part of the community center building should be provided. o A work space should be provided for Parks Superintendent although the Parks Maintenance main office shall remain at the Public Works Building. o Office should be warm and relaxing yet reflect a well organized, professional and business environment. o The office should be acoustically sensitive to the sounds of the building and other offices. o Lighting in office(s) to be controlled independently; desirable to be able to control amount of light, i.e. ability to illuminate one-half of the fixture or the whole fixture if desired. o Administrative offices should be in close proximity to "operational" counter for the community center, but separate. o Office should have natural light with common view of outside; operable windows for office. o Office finishes shall be durable and long lasting. o Office should be "odor free" from the building in general and lunchroom. o Position of secretary should be such that it provides good visual contact with key department staff. o Position of offices to storage/work areas should be considered; i.e., Recreation Supervisors in close proximity to storage area for their programs, Landscape Architect close to drafting area and blueprint machine, etc. o Sufficient space to provide for computer registration/reservation of other recreation space. o Sufficient space/room for storage of office supply items, copier, blueprint machine (venting to outside), sink and coffee area. o Sufficient space for storage of recreation program supplies, i.e. softball program, picnic kits, etc. o Provide a conference room/meeting space for staff of between 8-12 people; a table, chairs, display board/bulletin board, telephone. o A "lobby area" (approx. 100 sq. ft.) for department visitors or lobby of building sufficiently large enough to accommodate users and visitors. o Restrooms for employees shall be separate from public restrooms. o A lunchroom should be provided for employee/administration staff - providing an external view; removed from public access. COMMUNICATION: o Consideration given to tying into existing phone system in City Hall. o Consider new phone system that can tie into the main switchboard at City Hall enabling internal communication between Community Center and City Hall. COMPUTERS: SECURITY: o Consider independent phone system. o Intercom system should enable communication from administrative offices to various locations of building. o Paging system to communicate to users and staff in building. o Logis system to be accessible to both administrative staff as well as Community Center reservation desk area. o Word processing/printer equipment to be sufficient to allow access by all clerical staff. o Administrative offices should be secured from the registration area with consideration given to what type of safe or vault should be provided in office area. GENERAL FEATURES: 4/27/88 revision MULTI PURPOSE ROOM(S) Facility Adaptation/Flexibility o The multi purpose room shall provide for flexible program opportunity for youth through adults; including meetings. o Orientation of the room should be flexible for different uses; easy conversion from one orientation to the next; movable panels or similar system. o Access from interior lobby and exterior; special relationship with outdoor space. o Cable TV studio features are a possibility o Storage of equipment and supplies accessible for varied users. o Stage or raised platform and risers to be part of adaptability. Materials/Finishes o Ceiling treatment to cover duct work, etc. o Sound absorption treatments o Pastel/earth tones lines to create a relaxing environment; variable textures. o Main flooring material - ease of maintenance, aesthetic, life to replacement. o Acoustical sound control o Dance floor area Lighting Conditions o Lighting shall provide for variable intensity and sectioning. o Natural light/exposure to the outside; light controlled by curtains or blinds. o Wall lighting/recessed lighting for wall treatments; hangings. o Spot lighting for stage events o Track lights adjacent to walls for wall displays. Permanent Program Features o Sound system o Projection screen o Podium o Room dividers o Storage space for chairs/tables o Possible staging area for speakers,performers, etc. / USER PATTERNS: Program Accessories o Slide projector,movie projector, VCR, television, overhead. o Coat/hat racks, winter boots and/or check room. o Piano ? o Microphones o Floormats, example tumbling o Portable lighting o Lecterns Kitchens o Primarily used for catered events, not for preparation o Easy access for catering from outside. o Code and license requirements, i.e. washing sink. o Stainless steel code requirements refrigeration/freezer? o 3 compartment sink;"light, light" appearance. o Counter space,maximum the space can provide. o Storage cupboards - maximum number of electrical outlets. o Garbage/trash separation opening toward multi-purpose room. o Roll -up window? Access to more than one program space -coffee pot. food separate hand for counters, - white, clean Storage o Secured space for valuable program accessories; general access for tables, chairs, mats, lecterns, ping pong table, risers, stage, etc. o Storage space should be walk-in. o Room dividers should recess into the wall o Space for permanent user groups' supplies o Recreation supplies Direct Access to the Outside o Access to rest rooms. o Separate parking? o Alternate access from the lobby. MAINTENANCE NEEDS: o Materials easy to clean o Daily set-up/take-down for alternate uses according to reservations. o Janitor's closet o Vandal resistant surfaces o Standardization with park shelter buildings where possible. o Recyclables separated from refuse. STAFFING REQUIREMENTS: o Maintenance (janitorial really) o Clerical for reservations 4/29/88 revision FUNCTION: Program Room/Tots Room MAJOR PROGRAM: Tiny Tots programs, after school programs K-2, child care during evening activities for adults. PROGRAM OPTIONS: The program room is to provide an identifiable space for recreational program activities for children of pre-school through primary school age. GENERAL FEATURES: Facility Adaptation/Flexibility o Permanent location/identification o Sized to accommodate up to 30 children o Sized to address pre-school and after school K-2 o Consider the provision to be able to divide the space. o Access to outdoor play area o Door with glass to look in/out o Provide a staging area Materials/Finishes o Space should provide both carpeted and hard surface areas o Bright colors o Drop ceiling with acoustical tile o Washable surfaces throughout o Provide variable textures Lighting Conditions o Windows to the outside/natural light o Provide variable light levels, recessed lights desirable. o Possible spot lighting for "program area". Permanent Program Features o Small tables and chairs o Intercom system o A music area with a piano, perhaps o Many electrical outlets o Restroom sized to children within the space, or adjacent. o Counters and cupboards for storage; sink o Built-in individual storage space. o Display area for artwork and special projects. o Small refrigerator. o Wall surface for tacking and for writing. USER PATTERNS: MAINTENANCE NEEDS: Program Accessories o Coat "rack" o VCR/TV o Toy cupboards o Toys and games o Story telling equipment, puppets, flannel board. Storage o All storage internal to the space o Close relationship to entry/lobby desirable o Away from heavy traffic patterns; quiet area of the building. o Maintenance supplies nearby but not within program space. o Ease in cleaning all surfaces. o Sink in the area for easy cleaning of minor spills. STAFFING REQUIREMENTS: o Teacher/leaders o "Sitters" for evening hours. o Clerical for registration/collect fees for "sitting". EAGAN COMMUNITY CENTER BUILDING SECURITY/COMMUNICATIONS FOCUS GROUP NOTES FROM MEETING OF MAY 13, 1988 The first meeting of the Building Security/Communications Focus Group was held on Friday, May 13th, from 10:00 a.m. to Noon, in Conference Room A of the Municipal Center. Group members in attendance were: Pat Geagan, Kristi Morast, Mel Bailey, and John VonDeLinde. Kathy Dybiec, Park Technician Intern was also present to monitor the discussion and take notes. The purpose of the meeting was to gather input and information from team leaders of other focus groups that share a common interest with this topic. These groups included: ice arena, swimming pool, site, activity gym, programming, multi-purpose room, concessions, reception/lobby area, and administrative offices. The following notes are offered for the information and reference of focus group members and other focus teams. Separate notes from Dorothy Peterson are also attached. PAGE 2. KEN VRAA 1. Ice arena - Equipment room, Zamboni room, refrigeration room have high need for security. - Direct outside access needed from rink (for emergencies). - Ice arena should be cable -ready. - Phones not needed in Zamboni or refrigeration room. - Mechanical equipment area may need phone. - Arena should have means to cut into PA system (via phone or other way). - Zamboni room should have direct outside access. 2. Swimming pool - Immediate outside access needed for emergencies. - Security for pool is most important after hours. - A fenced -in outside deck is good for outside security and also good for direct outside access from pool. - Security cameras should be installed in pool deck area. - Pool area needs PA system which can be cut into by phone. 3. Site Area - Driveway to City Hall may need to be relocated. - City Hall parking may need to be relocated. - As it stands now, site location could seriously affect police emergency access to Pilot Knob and Wescott. - On-site/building design - entire campus should be considered. 4. Gym - Gym should. have direct outside access. - Gym should have PA system which can be cut into by phone. 5. General considerations for building - Phone systems will connect facilities to office. - Phone system should easily transfer a person from City Hall to center. - Now is the time for a total revamp/expansion of the City of Eagan phone system. The Community Center, City Hall, Police Department, and Public Works should all have a compatible phone system. Currently there is no quick access to the Police Department from City Hall. Now is a good time to plan for this and tie it into the future Community Center phone system. PAGE 3. - Computer information systems will be used for registration, reservations, ice rentals. - A separate computer system will be used for monitoring equipment. - Card access to the building will be considered. - The lobby will be the "hub of operation" and should easily control the movement of users and spectators. Video cameras will be in the lobby. Exterior lighting will be away from the building and provide illumination of the facade through "indirect" sources. - Entire building should be cable -ready. The conference rooms should be set up for on-site video cable recording. DOROTHY PETERSON 1. Programming - Phones are needed in each office area, pool, lifeguard office, locker room, kitchen, mechanical room, and tots room. - Receptionists and full-time staff should carry pagers. - Pay phones or free phones (with no long distance or "976" access) should be in lobby. A sound system is required in all elements of building. First priority is ice rink, second is pool, third is gym. Control should be in office, with a mixer. - Tie-in to the sound system should be at each area for easy control. - Meeting room could have separate sound systen. - A portable system could be used - but good acoustics are needed. - The computer system would continue use of Logis for reservations and registration. A multiplexor will be needed. - Computer would be set up for league scheduling. Word processing would remain as Word Perfect or Word Star. Computer should be set up to do cost accounting and inventory for concessions. - Software would be set up to accept member cards. The problem is how to know the card holder is actually the owner. Family cards could be used. A combination card system and registration desk could be considered as an alternate. 2. Multi -Purpose Room - Cable Studio should be inherent to multi-purpose room. It would be a two -camera system with portable satellite control with appropriate lighting (no flourescents). PAGE 4. 3. General Considerations for Building - Entire building should be cable ready. - Video cameras for security are a good idea. Make sure lighting is good. The cameras could tie into an alarm system. An alarm system would be just as effective as light beams, also cheaper. CHERYL - DESK 1. Reception/Lobby Area - Registration will be done in lobby; on an on-line Logis system (mass registration will be done ahead of time). - Lobby should be adjacent to administrative office, with a secured access to the safe. Possibly a separate front access would be for employees and visitors to administrative offices. Consider key pad. - A multi-purpose paging system is needed that ties into phone paging to all areas. Should be available from reception desk. Cameras can be monitored from receptionist desk. A backup is needed when receptionists get busy. 2. Administrative Offices - Office needs to be designed for 13-20 people. Entire Department will be moving there and plans should anticipate expansion. - Logis should be accessible to administrative staff. More PC's will be needed. - The intercom system should allow communication from the administrative office to any part of the building. - A vault or safe is needed in administrative office to store money from registrations and events. A procedure for handling money is needed. - A direct phone link from administration office to Police Station may be desirable. - A separate security system should be considered for the administrative offices, e.g., motion detectors. NOTES FROM DOROTHY PETERSON: PROGRAMMING NEEDS - COMMUNICATION SYSTEM/BUILDING SECURITY TELEPHONE - Located in each program "office" area examples - pool/guard office - mechanical rooms - locker rooms - program room - kitchen - Main office receptionist extensions to each staff office and program "area" Intercom to telephones and speaker system throughout the center - Consideration of public access to telephone in the lobby. COMPUTER - Software required for program - facility reservation - registration - Software required for clerical - Word perfect or Wordstar - Lotus 1,2,3 - league scheduling - Hardware - updated HP's - Logis • - laser printer - Logis printer - Multiplexor - Membership card reader activities SOUND SYSTEMS - All major components of the center require sound systems - Major controls in main office area - Program area controls - volume - mix - tape deck CABLE SYSTEM - Consideration should be given to the creation of a cable studio as part of the multi-purpose room. - Sophistication of equipment and controls is subject to the direction of Cable TV. - consider a 2 camera system - portable satellite controls - lighting MEMORANDUM TO: MAYOR AND CITY COUNCIL ADVISORY PARKS AND RECREATION COMMISSION FROM: KEN VRAA, DIRECTOR OF PARKS AND RECREATION DATE: MAY 21, 1988 RE: APPOINTMENT OF COMMUNITY LEISURE CENTER COMMITTEE ISSUES This memorandum deals with the establishment of a Citizens Committee to review the layout and cost estimating of a proposed community center. BACKGROUND Appointment of a task force and blue ribbon committee to review public policy issues is a common occurrence. Locally, School District #196 has used the task force approach frequently, as has the City. The municipal center utilized a task force to assist in the needs analysis and eventual referendum. In 1983, the parks development program utilized a citizens task force. The parks development task force reviewed park development priorities, set financial priorities, and made a recommendation for the eventual bond referendum. Some of the members of this task force later went on to assist in the marketing of the referendum. RECOMMENDATION Staff is recommending that the City Council establish a citizens "task force" or "reaction committee" to work with the Commission, Staff and Architect to help define the schematic plan for the proposed community center. It is felt that the committee would help to reflect the community's thoughts to the design suggestions of the architect and to review the costs involved. Further, the committee would help to shape the future bond referendum, and act as advocates for a positive vote for such a facility. COMMITTEE MAKE-UP It is recommended that the reaction committee be comprised of a broad and diverse group of individuals who reside in the geographical areas of the City. These individuals would have varied occupations, come from different dwelling types, i.e., single family, apartment and condominiums, representing a variety of household types. The reaction committee should consist of individuals who have a concern for the City and it's future. They should be informed about the community, can devote the time necessary to complete the task, be "unselfish" towards all aspects and areas of recreation and individual components of the community center. Experts in swimming pools, ice arenas, etc. are not necessary. However, an understanding for the diverse use for each is. With the expectation that the community center issue will ultimately come to a vote, these individuals should be "opinion leaders" and residents the community recognizes by name or position, or residents the community can easily identify with, sharing similar values. Finally, that three members of the Parks and Recreation Commission serve on that committee, along with the Director of Parks and Recreation, as task force liaison. The committee should range in size between 25 and 30 members. The architectural firm could also draw upon these same individuals to participate in the "Design Charette" to be used in the planning process. SELECTION AND APPOINTMENT With authorization by the City Council, a list of volunteer citizens and suggested candidates by the Council and Commission would be compiled with a brief background statement on each candidate for review. Appointment can then be made by the City Council after consideration of all factors involved, from those who wish to serve. The committee would then be organized and prepared to meet after the Council has affirmed the site and parameters of this project. SUMMARY A recommendation that a citizens task force '(a reaction committee) be formed. Individuals who are opinion leaders, represent the broad range of community interests, are unselfish in their thinking about a community center and its components and make up a broad range of income and residential types would be sought to serve on this group. The committee could be appointed by the City Council from volunteers or suggested candidates. The group would be formed after the architect and general parameters of the community center have been established by the City Council. PHILOSOPHICAL FOUNDATIONS FOR FEES AND CHARGES Developing Fees and Charges Rationale Most park and recreation agencies have examined or explored the issue of how much should be charged for different aspects of their services. The result is a spectrum of approaches, with some agencies still attempting to provide all of their services "free" (depending almost exclusively on tax levy support) while others are charging a multitude of fees and often producing a "profit" or "contingency" on various aspects of their programming services. Historically, park and recreation agencies have provided their services "free" or have assessed a nominal fee at most. As recent economic conditions and public attitudes have changed, many agencies are more likely to closely examine and implement some type of fee structue. As a park and recreation agency explores the issue of fees and charges, they are faced with the task of discussing the basic philosophies behind the provision of leisure services. In developing a rationale particularly suited to their own agency, the need arises to consider both sides of the related fee and charge arguments. In Favor of Charging Fees: 1. Fees generate revenue: This helps the agency budget and lessens the burden to the taxpayers, and often serves to improve park services. For example, if an enterprise fund is established for a com- munity program and the profits are put into the fund, the revenues can be used to offer additional services and/or to make capital improvements. 2. The participants who use a service should help defray the costs of its provision: In most cases, fees and charges do not cover the total cost of providing a service. Those who actually use the program should help to pay for it, rather than relying on the general public to entirely subsidize their activities. 3. Fees often instill appreciation: Participants who utilize a service which is "free" often as- sociate that value with their experience. When a fee is paid, they realize that it "costs" money to provide the service, and psychologically develop an appreciation based on the dollar value paid. 1 4. Equity arguments: A user charge is perhaps the best way of making the person who lives elsewhere (non-resident) contribute to the cost of the recreational activity. In fact, except for personal in- come taxes paid to higher levels of government, which in turn are used as grants in -aid to local government, it is the only way non-residents can contribute. 5. Fees to encourage private development: Private provision of outdoor recreation facilities for general public use involves many difficult problems, includ- ing competition from essentially free public areas. Modest entrance of user fees at public areas would remove one hurdle for private operation. CONSIDERATIONS FOR NOT CHARGING FEES 1. Fees may limit participation to those who can pay, and dis- riminate against persons with low-income: The need for recreational opportunities is basic to everyone, regardless of the ability to pay. Agencies which set fees need to be aware of the extent, location, and characteristics of the low-income population in their serv- ice area. There are two replies to the argument. First, property taxes, which are the primary source of tax revenues for most local recreation and parks, are regressive. That is, they tend to bear much more heavily on low-income groups than upon higher income groups. This is because property taxes generally represent a larger proportion of a poor persons total income than a wealthier persons income. It is en- tirely possible that the poor would be better off if they were charged user prices and given the option of not par- ticipating in offered services, therefore avoiding the pay- ment, rather than being forced to. pay taxes for services they do not want. Secondly, if some low-income individuals whose use of serv- ices were to be subsidized, it might be better to provide subsidized tickets to them rather than offering the services to everyone at no cost, regardless of their incomes. Such a strategy may be implemented by waiving fees on an in- dividual basis, having local citizens, businesses, or serv- ice clubs provide scholarships or subsidized programs. 2 2. Fees constitute "double taxation". This term is often referenced by opponents of fees who state that citizens have already paid for park and recreation services through their taxes. There are two rebuttals to those who believe in the double taxation theory: First, the taxes that citizens pay often do not cover the full cost of providing that service, and second, users who pay a fee and enjoy participating are still subsidized by those tax payers who do not or cannot participate. 3. Philosophical objections: Perhaps the stubbornest objection to user charges is philosophical. Many specialists in parks and recreation are opposed to user charges as a matter of principal. They argue that parks should be free to all, as schools are free to all; and that the necessary costs should be met in some other way. Proponents of this view believe that more atten- tion should be given to convincing public officials of the public good of parks and recreation and professionals should not give into the current popularity of supply-side economics. Thus, their belief is to concentrate on the jus- tification that the general public has been better off for the mere existence of public park and recreation services. It would be premature to propose concrete management objec- tives based on the philosophical view presented here. Much of the argument is reasoned speculation, in need of cor- roboration through discussion and research. 4. When carried "too far", fees and charge systems promote only those services which are fiscally prudent: Often, agencies which adopt a fee and charge system tend to judge their program or particular service on its ability to generate income. In some cases, a quality program is dropped even though it is serving an important segment of the community, because it is not generating "enough" income when compared to others. A park andrecreation agency should be sensitive to the entire needs of the community when considering the level of success for a program, not just the revenue generated. Consequently, programs that can generate revenues can be used to support other programs which are not able to. 3 5. Vulnerability of user fees and charges to economic depression: Some recreation administrators fear that, if user fees and charges were the sole or chief source of revenue, they might be in difficult circumstances if attendance fell off during an economic downturn, or because of taxing limits, are forced to raise fees dramatically to make up revenue without an increase in program value/quality. The first situation may be a dubious argument. If a depres- sion were severe enough to cause a significant decrease in demand, the situation might be no better if operating revenue came from general appropriations, for these would probably also be cut. Moreover, if attendance actually declined, most recreation agencies could make some adjust- ments in operation without critically weakening their or- ganization on a continuing basis. This argument against user charges would completely lose its force if recreation agencies were allowed to carry modest amounts of unexpended funds forward from one year to the next. 6. Potential unacceptability of user fees to the public: People often object to paying for what has traditionally been free or of nominal price. There may be ways, however, to avoid such objections by returning revenues directly to the collecting agency for facility and service development. Moreover, research has consistently shown a substantial willingness by the public to pay for recreation, par- ticularly quality programs. 7. Fees may decrease attendance: Many fear that fees will lead to public rejection of their services. This is mostly because park and recreation serv- ices have traditionally been supported through taxes and provided "free" to the public. Attendance may be affected if the prices which are imposed are not competitive, i.e., at or below other similar prices in the service area. Many park and recreation departments take into consideration the service prices of the private sector and set their prices at or slightly below that cost because: (1) they do not wish to "undercut" the prices of the private sector which is supporting the park and recrea- tion department through taxes, and (2) unlike the public service fee, the private service fee includes a percentage to realize a profit. 4 CONCLUSION I hope that the discussion above has put some light on one of the most actively debated issues in the parks and recreation field today concerning the financing of activities. The common feeling of professionals in the field is that public recreation cannot be truly free; some very real costs are in- curred and must be met in some way. A basic philosophical con- cept which is common to many park and recreation agencies is that of basic and special services. Often basic services (such as the provision of a well maintained park area with basic buildings and restroom facilities) are provided free. Special services, however, which incur additional costs or that are provided for a particular group, are provided for a fee to off -set the cost of provision. The staff believes that most of the community center activities would be considered special services, thus requiring a fee charged. The important question for discussion will be the basic services in the community center, and whether a fee should be charged for their use. For example, a floating device used in the swimming pool and scoreboard use in the ice arena. In regard to the potential discrimination of user fees of the un- derpriviledged, it is felt fees should not limit participation to those who can pay. Fee waivers, discounts, or other adjustments to the fee schedule should be available to those who cannot af- ford fees. In the case of entrance fees, providing a free day periodically, or providing special programming targeted at a par- ticular group at a minimal charge could be established. Another concept which is sometimes adopted in parks and recrea- tion fee policy is that of charging resident and non-resident fees. Often individuals who do not contribute to the tax base within the agency's jurisdiction (non-residents) pay an addi- tional amount in lieu of the property taxes paid by residents. In heavily used areas resident/non-resident fees may be used as a form of rationing, giving priority to the residents who are paying for the service through their taxes. The major problems with enforcing resident/non-resident fees are verifying residency status, public relations, and the difficulty of finding an equi- table method of computing the non-resident fee. The generalizations offered in this study suggest user fees can be compatible with an emerging ethical imperative for the park and recreation profession. They will only be compatible, however, if they reflect a well formed philosophy guiding the to- tal management of a recreational resource. The intention of this paper has been to examine some of the historical and philosophi- cal issues involved in the decision of whether or not to access fees and charges for park and recreation services. This study has particular importance to the community center. Since the majority of activities in the facility would be considered spe- cial services and, thus, a fee charged would be applicable. 5 The second part of this study will be to set a more specific fees and charges philosophy for the community center. This will be done once the particular components of the facility are more defined. Since the type and design of the particular components of the center will likely determine such policy. MB/bls 6 MEMORANDUM TO: ADVISORY PARKS & RECREATION COMMISSION FROM: KEN VRAA, DIRECTOR OF PARKS & RECREATION MEL BAILEY, INTERN DATE: MAY 23, 1988 SUBJECT: PHILOSOPHICAL FOUNDATION FOR FEES & CHARGES PART II - PRICING Background Information: This study is a follow-up to the study of philosophical foundations for fees and charges. It is suggested that this report be read in its entirety. The following information has been provided to assist the Commission in understanding the relevant issues of user pricing. It is staff's intention to set a pricing policy which best fits the Community Center as a whole. Thus, this study will provide information which can be used to make an informed judgement of pricing issues related to this facility. KV/MB/bls PRICING Pricing is one of the most technically difficult and sensitive areas in which park and recreation departments have to make. Our goal in this "study" is to explore relevant issues regarding user pricing. The discussion will first focus on the psychology of pricing, followed by sections dealing with objectives and methods of pricing, and concluding with the various types of fees used by park and recreation agencies. Psychology of Pricing: Pricing and potential participants reaction should be a logical and rational process. However, on some occasions, recreation groups reactions are emotional, rather than rational or logical. Price has some psychological aspects of which the park and recreation department should be aware of. The most important of these are described in the following paragraphs. 1. Expected Price Threshold Recreation groups have an expected range of prices which they are willing to pay for a particular program or service. If a price is set above a threshold price they will find it too expensive. If a price is set below the expected level, potential participants will be suspicious of the quality service. An important factor in establishing the expected price threshold may be the initial price an agency charges for a service. If participant groups have had little previous ex- perience with a particular type of service, the initial price may become the reference price which establishes the midpoint of the expected threshold. Hence, a park and recreation agency should be aware that the initial price it establishes cannot readily be increased to a substantially higher level at a future date. In effect, the first pricing decision may determine the level of price which can be charged for that program throughout its life. 2. Tolerance Zone The concept of a tolerance zone infers that price increases within a certain range or zone are sufficiently small so that they do not influence participation. For example, an increase in the admission charge for public skating from $2.00 to $2.25 may be noticed by the participant, but is likely to be small enough that it will not alter their pat- tern of use of the facilities. This type of price increase/decrease results in no changes in demand. An in- crease in price from .25 to .50 may arouse vigorous protest, 1 while an increase in the price of a different service from $3.00 to $3.25 may raise no comment, even though the in- crease in each case is .25 cents. This leads to an impor- tant management principal. That is a series of small in- cremental increases in price over a period of time, which fall within the tolerance zone are less likely to meet par- ticipant group resistence than a single major increase. 3. Price - Ouality Relationships Prices are often significant indicators of a program's prob- able quality. Marketing studies have consistently shown that consumers perceptions of product quality vary directly with price. Thus, the higher the price, the better the quality is perceived to be. For example, if a list of prices charged for swimming lessons by different agencies in a community i.e., private club, park and recreation depart- ment, community education, etc., was shown to a number of citizens, they would probably assume that the highest priced lessons were the best. In some situations, a higher price might add prestige and also make a contribution to improving the "image" of a specific service of the agency. For example, if much of the proposed clientele for a particular service is middle/and or upper class, it is possible to argue that the use of low prices may imply an inferior program, which may dissuade them from participating. Many times it may be possible to stimulate greater participation in programs by increasing price rather than by reducing it. 4. Change in Perceived Value If a price is to be charged for the first time, or if a relatively large price increase is to be made, participant resistance may be reduced if the perceived value of the program or facility is increased. Thus, if a participant perceives that the service they are purchasing has increased in value commensurate with the price increase, they are less likely to react adversely to the price increase. The reference or expected price which people have in their minds for a service is accompanied by a level of quality expected from the service. If they perceive the quality level to be higher, they are more likely to expect the price for the service to be higher. 5. Customary Pricing For some programs and services there are traditional or cus- tomary prices. Participant groups expect a certain price to be charged for these particular services. For example, people expect public pools to have nominal admission charges 2 of $2.00 to $2.50. When customary prices exist, it is dif- ficult, if not impossible for a manager to ignore them. In a sense, the existence of customary or traditional prices simplifies the pricing task. In effect, prices are deter- mined by custom, and it is up to the agency to produce programs or services that may be offered economically at those prices. Clearly, this puts the emphasis on cost con- trol. 6. Odd Pricing This is a very common form of psychological pricing in the commercial marketplace. A product is said to carry an odd price if it is .19 cents instead of .20 cents, $4.95 instead of $5.00; or $9.99 instead of $10.00. Odd prices are thought to create the illusion of lower prices. The sup- position is that the buyer will believe a price of $9.95 to be much lower than one of $10.00. There is little concrete evidence to support this contention. Indeed, it is entirely possible that odd prices repel some consumers just as they attract others. This practice does not appear to have been adopted in the public recreation and parks field, and there appears to be no reason why it should be. OBJECTIVES The opportunities and problems which a park and recreation department faces in establishing price are related to the objectives of pricing. What expectations does the agency have regarding the price it charges. Hence, it is essential to decide upon the objectives before determining the price. The objectives need to be defined in terms of priorities in order to guide the pricing decision. Unfortunately, very few agencies consciously establish pricing objectives, nor do they clearly state their specific price policies. Even fewer have written statements of their pricing goals. In the following paragraphs, we discuss six typical pricing objectives. It would be unusual to find a park and recrea- tion agency that has one overall pricing objective which is applicable to all programs. Different price objectives are likely to be appropriate for the different kinds of programs or services that the agency offers. In some cases, the pricing policy adopted for a single program reflects several pricing objectives which may conflict. For example, if the major objective is to provide maximum opportunity for par- ticipation in a particular program, suggests that a rela- tively low user price should be charged. However, this is likely to discourage the commercial sector from developing a similar service. Hence, a low user price may serve to reduce the park and recreation opportunities available in the community. The price that is ultimately adopted should 3 depend upon objectives that have the highest priority, and represent the best compromise among conflicting objectives. 1. Efficient use of all financial resources Pricing offers an alternative source of revenue which helps to compensate for the reductions in tax revenue support, which many agencies have experienced. Restrictions on new programs stemming from financial constraints are often removed if the projected new offerings are to be self - financed out of user price income. Further more, capital costs may be more palatable to taxpayers and their elected officials if facilities generate sufficient revenues to pay their operating expenses. Pricing can ease financial pressures in at least two ways. Not only can prices serve to increase revenue, but also, more indirectly, they can reduce the level of costs. This may occur since the costs of operating a particular program presumedly will be reduced as the number of participants declines in response to higher user prices. It is important that before a service is offered, its opera- tional subsidy be established. This may vary from no sub- sidy, which means that user prices recover all of the costs of operation; to subsidization of all costs, which means no user prices would be charged. Specifying the subsidy level in advance serves as the economic guideline within which the program should be operated. For example, the goal may be to subsidize the operation of a swimming pool up to a maximum of $50,000.00 2. Fairness or Equitable Financing park and recreation services through user charges exempts those citizens from having to pay part of the cost for those that do not want to participate or use the serv- ice. In addition, user pricing is the only way of making people who live and pay taxes outside of the community, con- tribute toward the cost of the recreation services they use. It might be equitable to charge a price to residents which will reflect the cost incurred in operating the facility through their tax payments. Residents probably contributed to the capital cost of establishing the facility in the first place. Hence, it may be argued that they have a presumptive right of access. In contrast, the charge to non-residents should be higher to cover not only operating expenses, but also to make a contribution to capital costs, since non-residents have made no such contribution through the tax structure. 4 Lastly, user prices must be fair and not discriminate against low income people. Fee waivers, discounts, or other adjustments to the fee schedule should be available to those who cannot afford fees. 3. Maximum opportunity for participation This objective is concerned with adopting a pricing policy which will encourage relatively large numbers of potential clientele to participate. To achieve this, the monetary price is likely to be very small or even zero. If adopted when a new service is being offered, it may help to make the program "visible" quickly and provide it with initial momen- tum. However, some care must be exercised in doing this, since the initial offering price may become the reference point for future pricing of the service. Establishing a low price initially is likely to limit the magnitude of any sub- sequent increases in price. Similarly, the objective may be to use a program or service as a "loss leader". In this case, the agency seeks to at- tract relatively large numbers of participants to a program, and then use this opportunity to provide participants with a comprehensive view of other services which the agency of- fers. Traditionally, public park and recreation agencies frequently have adopted this maximum opportunity pricing ob- jective, since it was assumed that if large numbers par- ticipate, the agency is best serving the community. However, it can be stated that such a policy may not be ef- fective or equitable, since the majority of a community of- ten does not participate in the agency's programs. Further, this objective has the adverse effect of discouraging the commercial sector from offering a similar service, because the price a commercial operator could charge would be too low for it to be a profitable venture. 4. Rationing User pricing may be used as a rationing device and may serve to provide the park and recreation department with insights into those services which client groups want most. Pricing performs a rationing function by excluding those potential users of a recreation and park service who are not willing to pay as high a price as other potential users. It thereby allocates the service to those who are willing to make greater sacrifices. This means that potential users to whom the service is not worth the cost will be excluded. 5 This is an important function, because providing recrea- tional services at no cost from tax revenues often leads to very heavy use of a service. However, the increased use does not necessarily indicate satisfaction with a recreation experience. For example, if a low price/or no price is charged for admission to a municipal swimming pool, it may become a free baby sitting service, not unlike some public libraries are today. An important point to emphasize is that attendance does not measure satisfaction, it merely records individuals participation and not their evaluation of the service. Pricing provides decision makers with valu- able information about the satisfactions or benefits which users perceive the service to provide. It gives some basis for comparison between programs, and a rare opportunity to compel the public to reveal their preferences. If there is no user price, some participants may be inclined not to express dissatisfaction about a program or service of poor quality, because it was "free". If a direct price is paid for it, this might imply to users that the service will attain a certain quality level. Failure to reach this level may cause participants to feel that they have not received value for their money, and they may be more inclined to voice their complaints. 5. Positive User Attitudes Pricing can be used to improve the image of a program or agency by enhancing its esteem and prestige. This occurs because people tend to associate the quality of the ex- perience with the price they have to pay to enjoy it. It is argued by some that the provision of anything at zero price tends to diminish its psychological, as well as economic value. Some sense of personal contribution or sup- port may enhance the visitor's feelings of responsibility towards, and esteem of, the facility. 6. Commercial Sector Encouragement If user prices are set low and facilities are heavily sub- sidized through taxes, then in effect the agency is follow- ing a policy of excluding the commercial sector from offer- ing a similar park and recreation service. Pricing which offers incentive for private investment would also release crowding pressures by increasing the supply. 6 PRICE ESTABLISHMENT After discussing the psychology and objectives of pricing the next logical step would be to consider how the actual price might be established. Three of these methods used by recreation and park agencies to establish a price for a particular program. Three of these methods initially calculate the cost of offering a service and then establish a price which is based on covering some or all of this cost. However, first a discussion on the other two methods which base pricing not directly on the costs of the service. Pricing Methods Not Directly Based on Costs 1. Going Rate Pricing Going -rate pricing is frequently used in public recreation and parks. It is applied when an agency seeks to keep prices at the averge level comparable to prices charged by other organiziations for equivalent services. To do this, an agency collects data concerning comparable prices charged by other agencies for this service. This type of pricing will probably avoid controversy, since the prices estab- lished will be consistent with the prices charged by others. Further, some argue that the average or going -rate price presents the collective wisdom of the field concerning what is fair and equitable. 2. Demand -Oriented Pricing Demand -oriented pricing implies that the agency should start by determining what potential participants are willing to pay for a particular service. This is a client -oriented ap- proach to pricing and represents an effort to implement the marketing concept. It is most frequently manifested by recreation and park agencies on those occasions when an agency prices particular programs or services at different levels for various client groups. This procedure is called price differentiation. Sometimes charging different prices for the same program or service raises ethical questions and may result in a loss of good will from participants. Hence, the fundamental requirement for differential pricing is that it must not cause resentment to a majority of participant groups. Differential pricing requires the possibility of dividing the clientele in some way into distinctively different groups. The four major criteria for dividing particpants into distinct groups are participant, product, place, and time. 7 There are two other types of situations which may not nor- mally be considered differential pricing, but should be men- tioned here. The first situation represents a type of quality discount; often a multi -day or season ticket for a service may be offered. This usually means that those users pay a lower price per visit than other users. The second type is promotional pricing. In this case, temporary price reductions to selected participant groups can be used as an incentive to encourage people to participate. Before proceeding to discuss the three methods based on costs, it is important that two types of costs need to be considered, defined and distinguished. Fixed costs may be viewed as overhead costs, for they are those costs which do not vary with the number of participants. Examples may in- clude repayment of bonds used to finance the construction of facilities, insurance payments, rental fees, equipment, and administrative salaries. Variable costs on the other hand, change according to the number of people who participate. For example, in a swimming lesson program, as the number of participants increase, there may be an increase in the num- ber of instructors required and in the cost of materials. Total cost is the sum of fixed and variable costs. An un- derstanding of the difference between fixed and variable costs is an essential pre-requiste to understanding the rest of the discussion in this section. Pricing Methods Directly Based on Costs 1. Average Cost Pricing Average cost pricing is one which covers all fixed and vari- able costs associated with a service. This type of pricing is most appropriate when the service offered exhibits the characteristics of a private service, in which only par- ticipants benefit rather than the community as a whole. Average cost pricing is rarely used by public park and recreation agencies. There are at least three reasons for its lack of popularity. First, it is difficult to identify the extent of all the fixed costs and to agree upon some criteria for their equitable distribution. Second, average cost pricing would lead to relatively high prices charged. Third, most public park and recreation services do not ex- hibit the characteristics of a pure private service, because frequently people other than the individuals using the serv- ice receive some benefits from it. 8 2. Variable cost Pricing Variable cost pricing is one which covers all variable costs, and does not attempt to contribute toward meeting fixed costs. Of several cost based options, this method is probably the most used and accepted by park and recreation agencies. It is a popular approach because obviously, when fixed costs are omitted, only variable costs have to be met, and a much lower price can be charged. It is argued that there are at least three other reasons why it is not appropriate to in- clude fixed costs in calculating the cost of a service. First, park and recreation facilities add to the quality of life or to the "livability" of the community. Second, the amenities may be responsible for a positive economic impact on the community, by attracting people from outside the jurisdiction who will spend their dollars in the community. Third, fixed costs associated with facilities represent "sunk" costs, that is, expenses already incurred that cannot be revoked or changed. Thus, it may be considered un- reasonable to expect those receiving park and recreation services today to carry the cost of past decisions in which they had no part of. 3. Partial Overhead Pricing Partial overhead pricing establishes a price which meets all variable costs and some proportion of fixed costs. The remaining share of the fixed cost represents the tax subsidy given to the particular program. Conceptually, the proportion of fixed costs which should be subsidized is dependent upon the extent to which the non- user benefits. As the benefits which accrue to non-users increase, the proportion of fixed costs met by the subsidy should increase. In practice, the appropriate proportion is generally decided upon in some arbitrary way, frequently guided by prevailing political pressures. Before leaving this discussion of pricing methods based on costs, there is one potential difficulty in using these methods which needs to be stressed. First, since costs are used as the basis for these three pricing methods, there must be ability to assess them, with some degree of ac- curacy. Hence, it is important to carefully and systemati- cally identify, classify, and allocate the costs associated with each program and service. 9 FEE TYPES In this section the various fee types will be discussed. Once prices are established it is important to define how fees are going to be collected. Successful park and recreation agencies employ as many fee types as possible. The one restraint is the compatibility of the fees with the objectives of the facility. 1. Entrance Fees: Entrance fees are those charged to enter a park. The area is usually well defined, but are not necessarily enclosed. The entrance is the patron's first contact with the park; however, it may contain additional facilities of activities for which fees are charged. 2. Admission Fees: These are described as charges made to enter a building or structure. These facilities usually offer an exhibit, show, ceremony, performance, demonstration, or special equipment. Entry and exit are normally controlled and attendance is regulated. 3. Rental Fees: Payment for the exclusive use of a facility or equipment. This fee gives the patron the right of enjoying all the ad- vantages derivable from the use of the facility without con- suming, destroying, or injuring it in any way. 4. User Fees: A charge to an individual for participation in a program or activity for the non-exclusive use of a facility. Numerous participants are usually involved in the activity or facility at the same time. 5. Sales Revenues: These are revenues obtained from the operation of conces- sions, pro -shops, restaurants, etc. Unconditional ownership of the item must pass from the seller to the buyer with each sale. 6. License and Permit Fees: A privilege to perform a particular action. A license is a written acknowledgement of consent to do a lawful activity. The payment for a permit for a dog show is an example of this fee type. 10 7. Special Service Fees: This is a charge for receiving extraordinary services or for having the use of special equipment/facilities when the benefits are specific to the individual or group which requests the service. Instructional classes in tennis are an example of special services for which fees could be charged. INTER -RELATIONSHIP OF CATEGORIES Any one of the categories may operate independently of the other seven categories; however, this type of action is not typical. To illustrate, a golf operation would include a green fee (user), rental of electric carts (rental), refreshments (sales), supplies (sales), and instruction (special services). It is evident that the more successful revenue producing facilities employ as many activities as possible whenever these activities are compatible with the objectives of the facility; naturally, all of these ac- tivities do not fall into the same classification. 11 SUMMARY Client groups' reactions are not always logical or rational. Im- portant psychological aspects include expected price threshold, tolerance zones, price -quality relationships, changes in per- ceived value, customary pricing, and odd pricing. These psychological reactions to price serve to stress that pricing is an art as well as a science. In the past, once user prices were established, they often con- tinued unchanged for substantial periods of time despite higher maintenance costs, changes in the price of comparable commercial services, or changes in demand for the service. To avoid this situation, a routine evaluation of all prices should be under- taken annually, and the price of each service adjusted ap- propriately to reflect changes in its objectives, costs, or demand. Most user prices seem to be set arbitrarily and intuitively, and often rely heavily on tradition. It cannot be denied that pric- ing is at least as much an art as a science, and that judgment must play a key role in pricing. Services can be priced purely on the basis of intuition or "feel of the situation," without any examination of the pricing factors discussed in this chapter or any attempt to employ a systematic approach to arrive at a price. An agency that prices by intuition does not necessarily have a poor pricing strategy. However, the chances are good that the agency does not have the best possible strategy. Judgment is required, and it should be informed judgment and not merely a hunch. 12 MEMORANDUM TO: ADVISORY PARKS & RECREATION COMMISSION FROM: KEN VRAA, DIRECTOR OF PARKS & RECREATION MEL BAILEY, PARKS & RECREATION INTERN DATE: MAY 13, 1988 SUBJECT: THE SERVING OF WINE & SPIRITS IN THE COMMUNITY CENTER ISSUE The purpose of this memo is to discuss usage of community rooms for weddings and receptions to decide if wine and spirits should be served for these functions. BACKGROUND This report was prepared by information gathered from the following communities: Brooklyn Park, Edina, and Golden Valley. These cities were chosen for their successful and known use of community rooms. Mel Bailey authored the "study" under the direction of Ken Vraa, Director of Parks and Recreation, to assist the Commission in understanding the relevant issues involved in the serving of alcoholic beverages in community rooms. SUMMARY The major conclusion that can be made from the communities surveyed is wine and spirits are a very important aspect in the rental of community rooms and generation of fees. There was a general concensus that if alcohol was not allowed to be served, the community room use would decline. The reason for this is there are too many facilities available in the private sector allowing alcohol in these cities, to have such restrictions. In Eagan there are few opportunities for large receptions to gather where wine and spirits are served. Revenues generated by the communities mentioned above for room rental to reception groups was substantial. These cities used the income to help off- set other costs in their facilities. FOR COMMISSION DISCUSSION: Direction will need to be given in the decision of whether or not alcohol will be allowed to be served in the community rooms of the community center. One option is to not allow alcohol to be served at all. If this is the course taken it will have a direct affect on the components of the community center. That is, it might be appropriate to cut back on areas of the community room which would be considered extra amenities. The problem with this approach is that it will reduce the room usage and the revenue generated; as well as having a direct effect on the cost effectiveness of the room and community center. A second option is allowing alcohol to be served. This is the common practice of the communities spoken with. In fact, they have been very well received, successful, and profitable in allowing groups to serve wine and spirits. A third option is to limit what types of alcohol can be served. The City of Edina has been very successful in implementing this practice. They do allow wine, champagne, and beer to be served, but not hard liquor. It should be noted that Edina does not allow alcohol to be served in any of its parks, with exception to their golf course and this is where the community room is located. Thus, the policy set for the City may be considered more of a compromise to the park ordinance than a preferred practice. REPORT Three area communities were surveyed, Brooklyn Park, Edina, and Golden Valley. All of these cities allowed wine and spirits to be served in their community rooms. Hard liquor was permitted, with the exception of Edina. The communities spoken with emphasized that serving alcohol was a key to their ability of room usage. Their highest and most frequent use was from weddings, group meetings, and anniversaries, in that order. These groups generally requested to be able to serve alcohol. One stipulation on rental parties was that they couldn't sell alcohol. This was due to City liquor license restrictions. Capacity of the community rooms varied from 200 to 250. All of the cities had rooms with dance floors and portable bars. Fees charged varied from $350 to $450 for residents and $425 to $500 for non-residents. Advanced registration fluctuated from a maximum of one year for Edina, eighteen months for Golden Valley, and two years for Brooklyn Park. The three cities surveyed stated that their community rooms were in high use and revenue producers. The income generated last year for each of the City's community rooms was: $23,000 for Golden Valley, $26,000 for Brooklyn Park, and $26,300 for Edina. This income was used to assist in covering costs of dormant space in their facilities, and to aid in the expenses of other services offered by the Parks and Recreation Department. It is hoped this survey will give some insight to the Commission concerning community rooms with a special emphasis on the serving of wine and spirits. FOR CONSIDERATION The decision on whether or not to serve wine and spirits in the community rooms of the the Community Center will have a direct effect on the space required, revenue generated, and service provided. Therefore, direction is needed from the Commission so that conceptual planning of the rooms can proceed. MEMORANDUM TO: CITY COUNCIL AND ADVISORY PARKS AND RECREATION COMMISSION FROM: STEVE SULLIVAN, LANDSCAPE ARCHITECT/PARKS PLANNER DATE: MAY 23, 1988 RE: UNISYS PARK ADDITION PROPOSAL The proposal is for the preliminary plat of four lots on two hundred five (205) acres. BACKGROUND The preliminary plat has no park dedication issues. The request for preliminary plat has provided the City with the opportunity to resolve a pending trail responsibility of the Unisys tax increment financing. This agreement provides for the financing of a pedestrian trail through the Unisys property from Quarry Park to Pilot Knob Park. The available funds for trail link is $32,000. To this memorandum is attached a letter from Gerald Tank of Unisys Corporation which defines the terms of the Development and Tax Increment Financing agreements in regard to the trail link. The Tax Increment Financing agreement places the trail easement along the northerly 15 feet of the Unisys property. This trail link would then extend along the west property line to a proposed trail along the north property line of proposed Alden Pond Addition. (See Figure #1). ANALYSIS The proposed Unisys alignment places the trail adjacent to the rear lot lines of the northerly single family residential. This neighborhood has typically taken strong interest in the development and review of the Unisys property. The Council and Commission may consider a neighborhood meeting allowing the residents to be updated on the current trail situation. If desired, the public input could be addressed at a subsequent Advisory Parks and Recreation Commission meeting. The proposed trail alignment relies on boulevard trails constructed with Alden Ponds development. Probable construction of these boulevard trails should occur this fall or next spring. In order for the Unisys trail link construction to occur concurrently consultant design services could be employed and construction documents implemented. FOR COUNCIL AND COMMISSION ACTION The Council and Commission may consider the following recommendations: 1. Staff organize a neighborhood meeting to update the adjacent residents of the proposed trail. 2. Subsequent to the neighborhood meeting return the item to the Advisory Parks and Recreation Commission for recommendation. 3. Consultant design services be employed for construction document implementation. rl s: ris • t r.111141‘.7 1:- • Ir. IP `• • •. . .-tx• . A •ktt.:41 of t 17 • a• • ••• • • "•••.:1' r !T (7-ra le -04- - 4•-• i "-‘gliajailaggla 0.ThL A.:•."•".•-•• • I ••••••••?..T....•••.t. - I INOMMIMPOSIMPOI MIPPPEC.. 101.1.11.177.74< ,..;7 J [B ,x 64525 612 456 2222 St Paul Minnesota 55154 0525 23 May 1988 K. Vraa Director of Parks and Recreation City of Eagan 3830 Pilot Knob Road Eagan, MN 55122 Re: Park Trail at Unisys Park Dear Mr. Vraa: This letter summarizes Unisys understanding relative to the proposed bicycle/pedestrian trail at Sperry Park (to be renamed Unisys Park). 1) The development agreement established during the original platting of Sperry Park, dated 31 March 1983, Exhibit "A", stated; "Sperry shall submit to the City a Letter of Intent to work with the City, the residents of the Timberline neighborhood and Four Oaks Association, to review and determine the necessity for the possible location of an easement providing access to Pilot Knob Park from Four Oaks Road satisfactory to all the concerned parties and to grant an easement therefore, at such time as agreement has been reached." 2) Unisys (then Sperry) letter of intent dated 25 February 1983 stated; "Sperry Corporation will work with the City of Eagan and residents of the Timberline and Four Oaks neighborhoods to review and determine the necessity for and possible location of a trail easement providing access to Pilot Knob Park from Four Oaks Road satisfactory to all the concerned parties. At such time as the parties reach agreement, Sperry Corporation will grant an easement to the City of Eagan providing said trail access to Pilot Knob Park. 3) The development agreement, dated 17 June 1986, established during a T.I.F. arrangement states in "covenant; 1.f. Internal bicyle/pedestrian trail on property to be provided by Sperry" and Exhibit "A"; "That part of Lot 1, Block 1, Sperry Park, located in the SE 1/4 of the NE 1/4 and the North fifteen (15) feet of the SW 1/4 of the NE 1/4 of Section 9, Township 27, Range 23, except those portions previously conveyed to the City of Eagan and Dakota County." Therefore, Unisys is willing to provide a strip of land along their northerly and westerly property lines from the west end of Towerview Road to the south side of an extension of Four Oaks Road for use as a park trail. (This strip of land would be adjacent to the northerly and westerly property line except at Unisys northwest property corner, it would be acceptable to follow the curve of the berm instead of making a 90 degree corner.) K. Vraa Page Two On May 16, 1988, your Messrs. S. Sullivan and M. Foertsch, R. Peterson and M. Madden of Doherty Rumble and Butler, and myself walked this strip of land and it was a concensus that it would be suitable for the trail since it would be an aesthetic setting, meet Unisys security requirements, and be a natural location since it borders Unisys property rather than dividing it. Also this location places it within the TIF district described in Exhibit "A" mentioned above, except for the westerly portion. Unisys will be providing all property required for this portion of the trail and does not require property from adjacent property owners. Although the westerly portion of the trail was not included in the TIF district, Unisys is willing to provide this land also for park trail and therefore does not require property from adjacent property owners. Please contact the undersigned at 456-4551 as further developments occur relative to the park trail. Sincerely, UnisyCorporation /---N G. W. Tank Manager, Real Estate Computer Systems Division cc: R. W. Peterson R. W. Nicholson GWT/cb Subject to Approval MINUTES OF A JOINT MEETING OF THE EAGAN CITY COUNCIL AND THE EAGAN CITY ADVISORY PLANNING COMMISSION Thursday, May 26, 1988 Mayor Ellison called to order a joint meeting of the Eagan City Council and the Eagan City Advisory Planning Commission which was held on Tuesday, May 26, 1988, at 6:30 p.m. at the Eagan Municipal Center. Present were Mayor Vic Ellison and Council members Wachter, Egan, Gustafson and McCrea. Also present were Planning Commission Chairman Pawlenty, Members Voracek, Garry, Miller, Graves, Merkley, Trygg and Wilkins. Tom Colbert, City Engineer, updated everyone present regarding the Diffley/Lexington Reservoir information. He stated the reservoir would be 6 to 8 stories in height. BRW has worked up plans for the reservoir and has 7 plans designed. Dennis Sutcliff stated several representative designs for the reservoir have been proposed: 1. Tank - painted to appear as a three dimensional office building 2. Conical shaped tank 3. Epcot Center type tank 4. Combination - water tank, recreational area, park There is also the possibility of an alternative 35 -acre site with softball fields around it with the centerpiece reservoir decorated serving as restrooms, concession stands and recreational areas for the children. This presentation was for the Council's information. The detailed presentation will be at a later date. The roadways must be identified that will be under capacity in the future. Potential plans must be considered for the road capacity improvements. Long term transportation decisions must be considered. The sprinkling ban which has been in effect will be lifted at 6:00 a.m. , on May 27, 1988. There was a total sprinkling ban on the City of Eagan south of Diffley Road due to the fact that Well no. 5 was out of commission. Well No. 5 is now back in operation. City Administrator, Tom Hedges, directed the conversation regarding development standards. The City Council is considering the adoption of new regulations to the City Code and changes in the existing policies for the purpose of enhancing quality standards for future development. Several of the recommended changes apply to rental units. Standards must be issued to decrease the amount of apartments. Some of the suggested requirements by the Council include: 1) the requirement of 75% of the exterior finish shall consist of brick, natural stone, or glass; 2) all rental units shall have underground parking stalls; 3) all rental units shall have sprinkler systems; 4) minimum engineering specifications for all parking lots that are four spaces or greater in non -R-1 developments; 5) underground sprinkling will be required for commercial and multi -family projects; and 6) regarding single-family projects, a percentage of each lot must have an acceptable level of forestation. A building permit process must be developed regarding the control of the development standards. A meeting is being scheduled for June 2, 1988, to review the proposal which will go before the Council on June 7, 1988. McCrea asked what will happen if a condominium is built and the condominium cannot be sold. Can the condominium then be rented? She wonders what the City can do to protect itself. McCrea is concerned that the contractors and/or developers may be using cheap facial material in their construction. Regarding the sodding requirements, the question was raised as to whether the 12 month time requirement (by ordinance) should run from the time of obtaining the building permit or the time of occupancy. Mayor Ellison stated these development requirements are just a beginning. He feels this will be an ongoing effort. He stated if these ordinances are adopted on June 7, 1988, the two major projects which are in the works at the present time will be subject to the new restrictions. He stated these measures are being welcomed by "site sensitive developers." These measures will have a long-term, positive affect on the neighborhoods in Eagan. Voracek questioned if the City can force the developers to clean-up previous projects before they can be allowed to develop further in Eagan. Voracek asked what can be done to enforce landscaping restrictions five years from now when residents fail to maintain their landscaping and their parking lots. Perhaps maintenance agreements in the townhouse association by- laws will be necessary. The transportation plan discussion was continued because the consultants needed more time to prepare. JOINT EAGAN CITY COUNCIL AND ADVISORY PARKS AND RECREATION COMMISSION MEETING Mayor Ellison reconvened the Special City Council meeting in the lunchroom in the Municipal Center Building at 7:30 p.m. for the purpose of discussing the proposed community center project. The meeting was attended by members of the City Council and Advisory Commission. Staff attending consisted of Tom Hedges, City Administrator, Ken Vraa, Director of Parks and Recreation, Steve Sullivan, Landscape Architect/Parks Planner, Mel Bailey, Parks Intern.n BLACKHAWK PARK Mr. Vraa and Mr. Sullivan reviewed the south access issue to Blackhawk Park, and presented three basic alternatives concerning the need and timing of road construction. They pointed out that Mr. Leo Murphy had not shown any interest in providing an early dedication necessary for the road construction. The owner of Blackhawk Ponds wished to see the road constructed as soon as possible into the park to avoid conflicts with future residents and lot sales. Staff responded to questions concerning roadway costs, size of acquisition, topography, alternatives and other questions relating to the project. Members of the Commission and Council voiced continued support of the Parks Plan and the importance of the south roadway access. It was stated that the road should be built all at one time, rather than in two separate parts as suggested as an alternative. Mayor Ellison suggested that Councilman Wachter, who has known Mr. Murphy for some time, and he could meet with Mr. Murphy to discuss with him the land acquisition. After further discussion, it was agreed that Mayor Ellison, Councilman Wachter and City Administrator Hedges, along with Staff would meet with Mr. Murphy to discuss the land acquisition issue, and that the results of that meeting be brought back to the attention of the Council and Commission. COMMUNITY CENTER Mr. Vraa then reviewed the organizational approach to the Community Center project, introducing the focus group concept - it's roles, responsibilities and communication channels. After some discussion, Councilwoman Pam McCrea asked that the public be brought into the planning process early, rather than at the end. Representatives should be sought from every precinct, however before being chosen they should indicate why they would like to be on the Community Center Citizens Committee. Mr. Vraa directed the group's attention to the packet item concerning the formation of a Citizen's Committee/Reaction Committee. It was agreed that the reaction committee would come from volunteers in the community for the planning of the project. Further, after the Council had agreed to the site and general perimeters of the building, the committee could be formed. Mr. Gustafson questioned when and how the priorities would be included into the building process, stating he felt the architects should not begin the design process until this had been accomplished. Mr. Vraa stated that he had thought the process would be more of a combination process of costs, needs and benefits, and that the architects would assist in that process. Mr. Kubic stated he wanted to know the cost before he would vote to include an item in the building program. He went on to say that it was not the first or second priority items that everyone was concerned with, but the lower priority items. He wanted to know their cost from the architects, so a decision could be made as for inclusion into the building program. Members of the Commission and Council voiced their thoughts and were in general agreement - that the architects review and input would be critical. Councilman Wachter expressed concern regarding City Hall expansion. He commented that one possible idea would be to have a connecting link between the Community Center and City Hall. Tom Hedges expanded on the space needs of the departments and he stated further that the City would need to undertake a space analysis to determine what the future needs for expansion of the City Hall building might be. Administrator, Tom Hedges, stated he wished to supply some information concerning the possible School Bond Referendum for District #196. He stated that he had met with Superintendent Rehwaldt and that the Board of Education was looking at a possible referendum which might include two or three elementary schools and three possible timeframes for such a vote. These timeframes were: October, January or March/April. There was general discussion by the group concerning the pc►ssibility by the School District for a referendum. Mr. Gustafson stated he felt the City Council and Commission should provide full public disclosure of the pending Bond Referendum. He also felt the City should continue with a February or Winter Bond Referendum as scheduled. He prefaced his comments by saying that the City should not have the referendum until we know it will pass. The Council expressed their desire for the best community center possible and that we can not be influenced by uncontrollables such as higher taxation and future bond referendums of the School District. Mr. Kubik stated that the bond referendum in one school district did not effect the entire City, and that plans needed to be dictated on the needs of the community and not dictated by actions of one of the three school districts. Mr. Wachter stated that he felt the pool and ice arena were of primary importance; the City should build for today's needs, and plan for expansion. He felt a February Bond Referendum was a reachable goal. After additional comments, there was a consensus that the architectural program should be continued and that a winter referendum would be considered. Changes in the timing can be made dependent upon the circumstances regarding the future. Mr. Vraa then discussed the importance of providing staff with some philosophical guidelines concerning operational costs, fees, and charges. He stated that these were important considerations to be considered and included in the architectural program. He then directed the Commission committee's attention to the packet containing information on fees and charges. Pam McCrea stated that she felt the Community Center should be self- supporting by utilizing user fees and charges. Member Carroll felt that the City should provide subsidized fees which would provide for usership for those who could not afford membership or not afford specific user fees. Council Member Egan stated he supported the idea that user fees should be utilized to compensate for operational costs only, but not for bond cost. Member Gustafson felt that the Community Center should attempt to be self-supporting by its user fees. There was additional discussion on user fees and program costs, noting that not all programs should be self-supporting. It was noted that many community centers are not able to pay for all operational costs. The general consensus is that the center should attempt to pay for all operational costs, but that certain programs and operations will not be totally self supporting. During discussion concerning the community room use, Member Swanson felt the community room could be appropriate for some use of alcoholic beverages, but not necessarily hard liquor; Mr. Gustafson stated he could not support spirits in the community room and felt the City needed to take a lead role in this. Member McCrea suggested that when the user of the Community Room wished to have alcoholic beverages (i.e., weddings, etc.) they would sign a form of liability waiver placing the responsibility on the user group. Other members of the Commission and Council supported the concept of allowing wine for some functions that were appropriate. The use of the rooms would provide a valuable source of income for paying operational expenses and design would be predicted on the number and types of use and user. Guidelines for use of the room and alcoholic beverages are to be developed. There was a brief discussion on advertising and donations; it was generally agreed that some advertising, used as a way of recognition for donations, would be permitted. It was suggested that a committee of staff develop guidelines for an appropriate time to cover such items. UNISYS TRAIL Mr. Jerry Tank, from Unisys Corporation, was present to represent his firm regarding a trail connection from Pilot Knob Park to Quarry Park. Steve Sullivan did reviewed the issues of the trail and noted that two possible alignments were possible: one would follow the property lines on the west and north and a second alignment would be closer to the existing roadway alignment; now blocked off. Mr. Tank stated that Unisys was very much opposed to the alignment adjacent to the roadway - stating his reasons for their concerns. He further went on to state that it was never Sperry's intention to provide for such a trailway, that in an earlier agreement with the City provided for the trail alignment closer to the property boundaries. Mr. Kubik stated that the neighborhood was very much concerned with trail alignment adjacent to the property. He stated that he felt the topography and existing vegetation was better along the roadway than adjacent to the neighbors. Further, there was not a strong positive sentiment towards Sperry/Unisys at this time. Members of the Commission and Council agreed that an attempt should be made to place the trail along the property lines as depicted by Mr. Sullivan's graphic, and that a meeting of the residents may be necessary for this trail system to be implemented. Mr. Vraa stated it would be necessary for the City's consulting firm to develop a site plan of existing conditions before a plan could be prepared. Noting that the meeting had extended beyond the timeframe, the joint meeting of the Council and Commission was adjourned. Date City Clerk