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07/29/1997 - City Council Special OC2.19 MINUTES OF A SPECIAL MEETING OF THE EAGAN CITY COUNCIL Eagan, Minnesota July 29, 1997 A special meeting of the Eagan City Council was held on Tuesday, July 29, 1997, in the Community Room of the Eagan Municipal Center building, beginning at 5:00 p.m. Those present were Mayor Egan and City Council members Awada, Blomquist, Masin and Wachter. Also present were Fire Chief Jensen, Senior Planner Freese, Senior Planner Ridley, Associate Planner Dudziak, Planner Farnham, Assistant to the City Administrator Hohenstein, City Attorney Sheldon and City Administrator Hedges. Staff present for the items pertaining to the Advisory Parks & Recreation Commission were Director of Parks & Recreation Vraa, Park Planner Lilly, Superintendent of Parks Olson and Superintendent of Recreation Peterson. FIRE ADMINISTRATION BUILDING City Administrator Hedges stated that the architects have been proceeding with drawings relative to the proposed Fire Administration building. He stated that before a variance application is submitted for the necessary ten foot variance setback to the west property line and a subsequent meeting with the adjoining property owner, Jim Horne of Horne Development, it is appropriate to have a brief review of the plans by the architect. Mr. Paul Michelburg, representing Boarman, Krause, Pfister, Vogel & Associates, was present and reviewed both the site and building plans for the proposed Fire Administration building. He further explained the need for a variance and reasons why the location of the building will provide a better site for the neighboring subdivision. He further reviewed the west elevation of the building and explained the sensitivity of less windows, berming and other amenities that will help screen the Fire Administration building from the two or three homes located imm~diately to the west of the proposed building. Senior Planner Ridley provided some additional explanation on the variance process and also discussed the right-of-way issue, stating that the county right-of-way has increased from 150 to 200 feet causing the same setback concerns the City experienced with the Police building on the east side of Pilot Knob Road. City Councilmember Awada stated that it is important to consider all options. Mayor Egan recognized members of the Fire Department Building Committee, who were in the audience and, with no further discussion, directed the architect to proceed ahead with the variance application and detailed drawings with the understanding that a meeting will be held with the adjoining property owner, Jim Horne, before the final design is approved by the City Council. REVIEW 1-1 ZONING STANDARDS Mayor Egan welcomed members of the Advisory Planning Commission, including its Chair Carla Heyl, and members Peggy Carlson, Larry Frank, Mark Miller, Paul Bakken, Jerry Segal and Steve Burdorf. City Administrator Hedges stated that the Advisory Planning Commission, at recent workshops, has reviewed and considered a draft of ordinance amendments concerning outside storage, 1-1 setbacks and screening requirements. He further stated that the EDC has been reviewing outdoor display standards to allow small commercial outdoor displays as a permitted use and has researched other cities' industrial ordinances to assist with evaluating Eagan's allowable uses in an 1-1 district. City Administrator Hedges stated that there have also been Commission discussions as to when properties abutting 1-1 should receive additional protection through more stringent setback, screening or buffer standards. He stated that using North Park site as an example, the APC has reviewed standards that provide additional protection adjacent to public areas, such as parks and schools. Senior Planner Freese provided a detailed review of the proposed amendments beginning with outdoor storage, stating that limited outdoor display was included in the proposed amendments as a permitted use in certain zoning districts subject to performance standards, while other outdoor storage not meeting the parameters established for outdoor display would still require a conditional use permit. She further reviewed North Park, stating that two alternatives for addressing this issue were identified, including: 1) making public athletic complexes a permitted use in the 1-1 district and 2) established overlay zones specific to North Park. She further reviewed setback requirements, stating that the draft ordinance proposes to reduce the building and outdoor storage setback from 100 feet to 50 feet and to reduce the parking setback from 100 feet to 20 feet for those cases where 1-1, 1-2, RD or BP properties across the street from properties which are guided for residential land uses or when directly abutting properties zoned Public Facilities. She further stated that a 100 foot setback in 1-1 and 1-2 districts and a 50 foot setback in BP and RD districts would be retained for buildings, parking and outdoor storage when the property is directly abutting property which is guided for residential use. Senior Planner Freese further stated that under the OCZ50 Page 21Eagan Special City Council Meeting Minutes July 29, 1997 setback provisions, side and rear yard setbacks in RD districts are also proposed to be reduced from 40 feet to 20 feet and front setbacks from 60 feet to 40 feet to be consistent with the BP district. Senior Planner Freese reviewed the final ordinance amendment for screening, stating that the subdivision requiring screen requirements does not include buildings as an item for which screening is required and the outdoor storage performance standards requires that outdoor storage areas be located in the side or rear yards only and must satisfy all required building setbacks from the street. She further stated that therefore, buildings may serve to screen other uses on the side and outdoor storage may not be located between the building and the street which is the Planning Commission's suggestion on this amendment relative to screening. Mayor Egan thanked Senior Planner Freese for her presentation and opened up discussion to the City Council and Advisory Planning Commission members. City Councilmember Blomquist stated that she would support North Park as an athletic park usage. City Council member Masin stated that she is not convinced that setback regulations should be given up for the athletic park use. City Councilmember Awada stated that she disagrees, stating that Industrial Park neighborhood was there first and should be given consideration. After further discussion on the proposed language, Carla Heyl, Chairperson of the Advisory Planning Commission, complimented staff for providing all the documentation as directed by the Advisory Planning Commission and City Council. City Councilmember Blomquist commented on whether City ordinances should incorporate the word, "shall" or use "must" or "will." She referenced Webster's Dictionary, suggesting that the words, "must" or "will" provide greater strength to the ordinance language. The City Administrator was further directed to discuss this matter with the City Attorney and State Reviser's office. City Council member Masin raised questions about outdoor display, asking if an outdoor portable basketball use is considered outdoor display. Advisory Planning Commission member Carlson asked if the City should protect itself against what is displayed. Commission member Segal stated that the Committee, consisting of Commission member Bakken and himself, concluded that the City should avoid any conflict with the First Amendment. Both Mayor Egan and City Council member Blomquist raised questions as to whether the proposed ordinance amendments will cause a problem for Max Steininger's concrete reclamation business that has relocated to a site within the 1-1 district. Senior Planner Freese explained how the ordinance applies to concrete recycling, stating that such a business is not currently permitted or allowed as a conditional use in the 1-1 district. It is through the use of the interim use permit that this type of business is reviewed and permitted in the City. Senior Planner Freese reviewed the pros and cons of each approach. Commission member Segal stated that a more fundamental issue is whether a concrete reclamation business should even exist at all in the City. Commission member Miller stated that he supports the current practice of issuing interim use permits which allow a City to review this type of use on an annual or every other year review, but in any case, not to issue an approval for concrete reclamation as a long-term use. City Council member Blomquist stated that the ordinance and policy should be clear so as to not mislead the applicant who may have a heavy financial investment in the business. She stated that an interim use permit could include a one or two year extension. City Council member Masin questioned the draft language under Subdivision 29A2, which states, "The display area should be located immediately adjacent to the principal structure and only on the side of the building which contains the main entrance." She stated that this type of exclusivity could impact the Cedarvale area. Commission Chair Heyl stated that this language might have been an oversight, since Cedarvale was never considered in the discussion. She stated that the display area was thought of more in terms of convenience centers and multi-user entrances, but did not look at Cedarvale. Commission member Bakken stated that the Commission's review has focused on stand-alone facilities and some revision is necessary for a Cedarvale development. Mayor Egan stated that he is hearing a consensus to review any interim use on a case-by-case basis. City Councilmember Blomquist raised questions about the "trash enclosure" modification and also the size of planting islands as proposed in the landscape specifications. City Council member Awada raised a policy question as to why there are specific standards at all for the planting islands. Senior Planner Freese explained the options that were discussed by staff. Planner Farnham responded to the rationale and the size of the draft planting island standards. Commission member Frank stated that, as a professional landscape. architect, he was responsible for OC251 Page 3/Eagan Special City Council Meeting Minutes July 29, 1997 some of the proposed language and rationale for the size of planting islands. Commission Member Frank provided further background on this matter. After a lengthy discussion on the proposed ordinance amendments, including several revisions and modifications, Mayor Egan thanked the Planning Commission for their review and input and directed staff to make changes to the outdoor display and industrial setback prior to City Council consideration on August 19. COMPREHENSIVE GUIDE PLAN REVlEW/D-1I STUDY City Administrator Hedges stated that staff and the Advisory Planning Commission had been working on the comprehensive guide plan update and referenced a work program which incorporates a review of the existing goals and policies and another document that updates the progress made on the residential plan element and the D-lIland use study. Senior Planner Freese provided a brief overview, first on the proposed residential goals and policies which she stated, that the whole Advisory Planning Commission needs to work on. To date, only a subcommittee of the APC has addressed these goals and policies. Secondly, she provided background on the progress, including meetings with property owners, that have been made on the D-lIland use study. Mayor Egan asked for comments by members of the City Council and Advisory Planning Commission. City Councilmember Awada asked what effect the changes have on undeveloped land. City Councilmember Blomquist asked if the proposed language for the residential plan element is being written for the City's comp guide plan or what the Met Council wants. City Councilmember Awada stated that the language appears to be in favor of the Met Council's policy and not necessarily what the City Council desires of its residential plan element. Commission member Segal stated that the Committee he shares with Commission member Bakken has been reviewing the residential housing element in the context of what is best and most desirable for the City of Eagan and not the Met Council. City Council member Blomquist stated that the goals need to be broadened and include upscale housing. City Council member Wachter suggested that a specific clause be added to include executive housing. City Councilmember Awada stated that the City currently exceeds the multi-family goals and therefore, there is no reason for the City to increase these goals in the housing element. Both City Councilmember Awada and City Council member Blomquist raised further concerns about the housing balance. Senior Planner Freese stated there has not been any recommendation on how the D-II parcels fit into the housing framework. She suggested that the City review and agree with the housing framework prior to applying it to specific properties. City Council member Blomquist referred to language that allows consideration for smaller single family lots in the D-I category. City Council member Awada and Mayor Egan shared a discussion about their concern on prospective development and how the City can plan for more D-I types of development. City Councilmember Blomquist stated that the existing non-conforming R-1 lots are grandfathered in and questioned whether or not that would be sufficient to enable those property owners to effectively use their properties. Commission member Miller stated that the review, to date, has not concentrated on old neighborhoods; however, the Commission did look at encouraging the minimum land use density. City Councilmember Blomquist stated that she is concerned about "fair share" housing distribution. Due to her election on the City Council and changes in the membership of the Advisory Planning Commission, it may be prudent for the City to readdress the Livable Communities goals. Commission member Miller stated that he would like a specific vision for the future relative to the housing element. Mayor Egan stated that the City should not determine policy on a case-by-case basis, but agree to a direction of uniformity. City Councilmember Awada stated that, in her opinion, the housing goals do meet Met Council objectives; therefore, the goals are actually becoming a numbers game. She suggested that staff consider several scenarios regarding the goals. She further stated that there appears to be a consensus by the City Council that as much land as possible should be designated D-1. Senior Planner Freese stated that at some point, she will need direction regarding criteria for reviewing remaining residential land on a parcel-by-parcel basis to determine a comp guide plan designation. Mayor Egan suggested several goals for consistency with single family, suggesting land use proximity to 1) air and noise compatibility, 2) industrial park, 3) transportation corridors, 4) community parks, 5) other residential development, 6) utilities and 7) certain topographic features. City Council member Wachter stated that he is in agreement with the Mayor's guidelines and that any parcels to be designated D-II should be thoroughly reviewed on a case-by-case basis. City Councilmember Blomquist stated that an effort needs to be made to condense the affordability language and suggested that the language be modified to reflect quality of life. 0('252 Page 4/Eagan Special City Council Meeting Minutes July 29, 1997 Mayor Egan thanked the Advisory Planning Commission for their work on the D-II study and comprehensive guide plan update and suggested that staff and the APC continue working on updating the goals and policies, focus on the remaining undeveloped property and work to achieve housing balance focused on single family. MUNICIPAL CENTER & SITE City Administrator Hedges stated that the final budget for the Police Department City Hall Project included allocations for the screening of rooftop mechanical units and additional landscaping, both of which are intended to permit the City's building to conform with the same codes we require of other office and commercial development. He asked specifically if the City should proceed with either the additional landscaping or the screening at this time or to postpone one or both until the appropriate time. After a brief discussion by the City Council, direction was given to phase-in the roof screening when the Municipal Center building's roof is repaired and the final landscaping will be performed at the time the Municipal Center site is built out. CAPTAIN DODD PARKN.I.C. PROGRAM Mayor Egan welcomed members of the Advisory Parks & Recreation Commission, including its Chair Lee Markell, Michael Vincent, Daryle Peterson, George Kubik, Terry Davis, John Rudolph, Mark Filipi, Steve Knutson and Barb Johnson. Director of Parks & Recreation Vraa stated that department staff, along with the Dakota County Physical Development Department and the Minnesota Pollution Control Agency, have been coordinating clean-up efforts for a portion of Captain Dodd Park that is affected by the property to the east, which was used for a crushing operation for car batteries. Director of Parks & Recreation Vraa provided information about the Phase I Environmental Audit and the Phase II Report that details results of any testing proposed in the Phase I Report and outlines the mitigationlwork plan. This work would be carried out under the V.I.C Program, under the MPCA. After a brief review and comments by the City Council and Advisory Parks & Recreation Commission members, the Director of Parks & Recreation was given direction to proceed with the hiring of an environmental consultant to complete both Phase I and, as may be necessary, a Phase II Report as outlined for the environmental review and mitigation of Captain Dodd Park. AMPHITHEATER SITE ANALYSIS Director of Parks & Recreation Vraa reviewed the analysis of the various amphitheater sites that were jointly toured by members of the City Council, Eagan Rotary Club and the Advisory Parks & Recreation Commission. He stated that the evaluation process includes 23 criteria that were developed to evaluate each site and make the review less subjective. The locations include three sites near the Unisys Campus, two locations within the Municipal Center Campus and the other sites at Patrick Egan Park and Sky Hill Park. Director of Parks & Recreation Vraa provided some background on each of the 23 criteria for the site evaluation, noting that the ranking criteria was in general order of priority, meaning the ranking at the top shall be given more importance. City Council member Blomquist asked if noise is a criteria for the three locations on the Unisys parcel, stating that the Timberline neighborhood has expressed concern about the level of noise generated by the commercial buildings and further, would air traffic noise be a factor? Park Planner Lilly stated that air traffic has been reviewed and was not considered to be critical to the RD1, RD2 or RD3 sites, all of which are located on the Unisys Campus. City Council member Awada stated that in her opinion, the Sky Hill site should be eliminated. City Councilmember Wachter raised concerns about the report evaluation of no handicap access for one of the two locations on the Municipal Center site. He stated that he is convinced that a handicap access could be located at the Municipal Center site for both of the locations. Mayor Egan commented that one of the biggest expenses associated with the proposed amphitheater will be parking and whether this site (Municipal Center) or another can provide sufficient parking will be crucial. 00253 Page 5/Eagan Special City Council Meeting Minutes July 29, 1997 City Councilmember Awada suggested that the City reconsider the other alternative sites in case the City Council determines after reviewing the Municipal Center Master Plan that the amphitheater is ruled out as an element on the Municipal Center Campus. She suggested that the three RD locations be further considered. City Councilmember Blomquist again raised concerns about noise to adjacent neighborhoods. Park Planner Lilly presented layouts illustrating that the sound, according to their drawings, should not provide a problem for the adjacent neighborhoods. City Councilmembers concurred that there are still concerns about the RD sites. After further discussion, there was a consensus to eliminate RD1, RD2 and SH, which are two of the three sites on the Unisys Campus and Sky Hill Park. Mayor Egan stated that the two Municipal Center sites, one site referenced as RD3 and Patrick Egan Park will continue to be considered for the amphitheater site. MUNICIPAL CENTER MASTER PLAN REVIEW City Administrator Hedges stated that at the July 15 regular City Council meeting, the firm of Ingraham & Voss was retained to prepare a Master Plan of the remaining development options for the Municipal Center Campus. He stated that the library, civic arena, outdoor wading pool, Police Department building and Municipal Center building are fully developed and the City is anticipating a second sheet of ice on the campus. The City Administrator stated that the question before the City Council is, in addition to the second sheet of ice, what other uses are compatible for the Municipal Center site? Greg Ingraham of Ingraham & Voss stated that the program elements that have been considered to date include a location for the amphitheater, a swimming pool complex and additional parking. Mr. Ingraham provided an analysis of the site, identifying four programs as A, representing major expansion opportunity. Mr. Ingraham asked what the Council's vision was for the swimming pool, an indoor facility, outdoor winter play park or competitive pool; 8, should remain open space; C, best for future Police expansion; and D, for the proposed civic arena expansion. After additional questions about the analysis provided, Mayor Egan asked Mr. Ingraham if he thought the City can have both an outdoor swimming complex and amphitheater on the site identified as major expansion. City Councilmember Wachter stated that, in his opinion, a swimming pool is a higher priority. City Councilmember Masin stated that she would like a list of all City needs for build-out before the Municipal Center site is considered for development. Advisory Parks Commission member Markell commended the City Council for its vision to develop a Municipal Center Campus Master Plan and agreed with City Councilmember Masin that a list of all City needs for other City-owned parcels should be considered. Mr. Ingraham stated that he has provided some basic analysis about the nature of the pool, stating that if the facility is to become a revenue generator, it should be constructed with water park features. Commission member Peterson stated that his neighborhood is asking when the City will consider development of a water park. City Council member Masin suggested that the City look at the outdoor swimming pool opportunities at the Eagan Athletic Club and also, the use of public transit to access a municipal swimming pool complex, which may help to eliminate the demand on parking. Commission member Vincent made reference to the community survey conducted by The Wallace Group, noting that a swimming pool was a high and favorable use recognized by the community. He further stated that the Municipal Center site is a good location for this type of facility. A question was raised as to the sensibility of adding the bath house for the swimming pool as part of the arena expansion. Mr. Ingraham stated that he would review that possibility with the arena architect. Mr. Ingraham thanked the City Council and Commission for their input and stated that he would be back at a future work session with two to three concepts for consideration by the City for the Municipal Center Master Plan. APrC PRESENTATION OF CIP City Administrator Hedges stated that during the fall of 1996, the APrC was given direction by the City Council to prioritize park development needs based on a scenario that if the remaining park site fund is the only funding source available, how would all the capital needs be prioritized? He further stated that at a joint City Council/APrC meeting held on March 17, 1997, a matrix format to evaluate each park/park project under review by the APrC was reviewed and found acceptable by the City Council. APrC Commission Chair Markell summarized a spreadsheet and projects that made the original evaluation list. City Councilmembers and Commission members discussed various elements of the list. Markell explained the two set-aside portions the Commission was recommending and the need for flexibility in future months Page 6/Eagan Special City Council Meeting Minutes July 29, 1997 00254 if conditions change. He went on to say that the cost for all projects identified was over $5 million, but that the Commission is looking for direction on the list of opportunities. City Councilmember Awada thanked the Commission for an excellent job and suggested that they proceed ahead with the list as identified and prioritized. City Council member Blomquist stated that she is concerned about the lack of soccer fields. There was some general discussion by both the City Council and Advisory Commission about community athletic fields needs in the future. In response to a question about out of City teams, Director of Parks & Recreation Vraa stated that there are teams with sponsors who may not be an Eagan business, but team members must live or work in Eagan. He stated that West Publishing, a corporate citizen of Eagan, has twelve teams in Eagan leagues. Mayor Egan questioned if the list of projects identified had been prioritized as to which should be done first. Chair Markell and Director of Parks & Recreation Vraa both responded that the list was not prioritized. After a detailed review of the various sites, Mayor Egan thanked the Advisory Parks & Recreation Commission for their thorough review and preparation of the Parks CIP evaluation summary and concluded that there is a consensus by the City Council to accept the recommendation of the Advisory Parks & Recreation Commission's recommended projects for funding as the basis for the City's parkland CIP. He stated that staff will include the list as a part of the 1998-2002 CIP. WADING POOL UPDATE Director of Parks & Recreation Vraa stated that at the direction of the City Council, other locations for consideration of a second wading pool have been reviewed by staff. A report with a matrix evaluating critical factors for a swimming pool location was completed. He stated that five parks, including Ohmann, Quarry, Lexington Diffley, Blackhawk and Trapp Farm Parks, are potential locations. He further stated that each site has its own strengths and weaknesses. However, there has not been any cost analysis for the sites to determine which site was the most cost effective. City Councilmember Wachter stated that he is supportive of the wading pool at the Municipal Center site and would like to consider another wading pool; however, the City should first decide on a swimming poollwater park for the community. City Council member Masin stated that she is in agreement that before a second wading pool is given consideration, the City should construct a swimming poollwater park. City Councilmember Awada stated that she generally agrees and asked what the cost would be for a second wading pool. Director of Parks & Recreation Vraa stated that there are certain modifications the City would want to consider for a second wading pool and, with inflation, it is anticipated the cost would be $140,000-$150,000. Mayor Egan agreed that the City should focus first on the swimming pool before a second wading pool is considered. Director of parks & Recreation Vraa indicated that there are certain operational issues that need to be discussed regarding the existing wading pool. Recognizing the hour, there was limited discussion; however, Mayor Egan stated that operation of the existing wading pool should be addressed in the future to prepare for the 1998 season. Mayor Egan thanked members of the Advisory Parks & Recreation Commission for their excellent work on the CIP and their attendance and contribution to the work session. OTHER BUSINESS There were no Other Business items. ADJOURNMENT The meeting was adjourned at 9:20 p.m. July 29, 1997 Date