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07/07/2005 - City Council Special SPECIAL CITY COUNCIL MEETING THURSDAY, JULY 7, 2005 7:30 PM EAGAN ROOM-EAGAN MUNICIPAL CENTER AGENDA I. ROLL CALL AND AGENDA ADOPTION II. VISITORS TO BE HEARD III. NORTHEAST EAGAN LAND USE STUDY-PRESENTATION OF COMMITTEE REPORT IV. OTHER BUSINESS V. ADJOURNMENT Agenda Information Memo July 7, 2005 Eagan City Council III. NORTHEAST EAGAN LAND USE STUDY -PRESENTATION OF COMMITTEE REPORT ACTION TO BE CONSIDERED: To receive a presentation of the Northeast Eagan Land Use Study Committee Report and provide general direction to staff regarding its findings. Specific direction is requested relative to the preparation of a policy, procedure and funding mechanism to address traffic issues in the northeast Eagan area that were identified in the study. Specific direction is also requested as to whether to schedule a public open house regarding the study. FACTS: • At its meeting of July 6, 2004, the City Council implemented a moratorium through March, 2005 for purposes ofstudying-alternative land use scenarios for a one square mile section in northeast Eagan to determine whether justification exists to change the City's Comprehensive Land Use Guide Plan designation for properties in that area. • The Council identified a number of policy and development factors to be considered as a part of the study including: relationship to existing uses and plans of existing businesses, adequacy of commercial land supply, airport noise, revenue and service cost impacts, parks needs, economic development policies, mixed use options, transportation needs and impacts and environmental impacts. • At its meeting of August 17, 2004, the Council authorized staff to retain Rusty Fifield of Hoisington Koegler Group to perform the land use study and on September 7, 2004, the Council approved the study scope and contract were approved for the study. The Council also appointed the Study Advisory Group, which consisted of representatives of the Planning, Parks, Economic Development and Airport Relations Commissions. • Stakeholder interviews were conducted and Committee meetings were held between October, 2004 and January, 2005, at which time the status of the general study and the results of the initial traffic study were reported to the City Council and the Council gave direction to suspend Committee work while a traffic study covering a broader scope was completed. The additional traffic study was completed in April and the Committee reconvened in May, 2005 and approved a final draft of its report in June. The proposed format for the discussion will be an introduction by staff, presentation of the Committee Report by the study consultant, Mr. Fifield, additional comments on the conclusions by Carla Heyl, who was chosen by the Committee to be its spokesperson, comments from the public, if any, and discussion by the Council including questions of the consultant and Committee, followed by consideration of direction as outlined below. • At this time, staff is requesting Council direction on the following items: • General direction concerning the findings of the Committee and the Council's determination of whether to consider land use changes in the area or not. • Specific direction regarding the traffic study results. The outcome of the traffic study suggests that additional roadway improvements will be necessary in the area to support not only development in that portion of Eagan, but in the County, regional and State systems as well. The Committee report supports the modification of the Comprehensive Guide Plan Transportation Chapter to anticipate those needs and the City Attorney has advised that the City should develop and adopt a policy that defines its planning and cost participation expectations relative to those improvements. • Specific direction as to whether a public open house should be held regarding the study. The original scope of work anticipated an open house as part of the process, but it has not been held to date in the interests of completing the study as expeditiously as possible following the completion of the second traffic study ATTACHMENTS: • Final Committee Report enclosed without page number. • Scope of Work approved on September 7, 2004 on pages • Notes of Committee Meeting discussing issue evaluation results a Northeast Eagan Land Use Study Scope of Work September 2, 2004 Overview This document describes the scope of work the Northeast Eagan Land Use Study (the "Study"). The catalyst for the Study is a requested change to the permitted land use for an area within the Northeast Quadrant of the City. The property is currently planned for commercial uses. A requested change would introduce a substantial area of residential uses in an area in which they have not been planned or anticipated in the past. The Study has been authorized to provide the City Council with appropriate information to determine if the current land use designation should change, and if so what the appropriate land use should be. Assumptions This scope of work is based on the following assumptions: 1. A "Study Advisory Committee" will be established to serve as the steering committee for the process. The Study Advisory Committee will direct, monitor and evaluate the work of the consulting team. The Study Advisory Committee provides policy and process direction to the Study. At the discretion of the City Council, the composition of the Study Advisory Committee may include members of the City Council, the Planning Commission, other boards)commissions, representative from Inver Grove Heights and possibly the general community. 2. The process will include periodic checkpoint or study status meetings between the Study Advisory Committee and the City Council. These meetings will be open to the public and will ensure that the results of the study provide the information needed by the City Council for decision-making. 3. It is anticipated that the planning process .will conclude during the first quarter of 2005. 4. Hoisington Koegler Group Inc. (IIICGi), Ehlers & Associates (Ehlers) and SRF Consulting Group (SRF) will provide consulting services for the Study. HKGi will be the prime consultant and will enter into subconsultant agreements with Ehlers and SItF. This approach ensures the proper coordination of tasks in the planning process and compilation of the findings and recommendations into a final document. 5. City staff will actively participate in the Study, however, the scope of work is designed in minimise additional demands on city staff. Staffwill provide the consultants with existing plans, proposals and data about the Study Area. Staff will be responsible for making meeting arrangements including facilities and the duplication and distribution of materials. 3 Northeast Eagan Land Use Study Scope of Work September 2, 2004 Page 2 of 6 Work Program Task 1-Organize the Study Process 1.1 Collect and review existing information. The consultants must begin the project with a clear understanding of the Study Area and existing plans and proposals. Among the items to be reviewed are: • Comprehensive Plan • Plan for Special Area 1 • Zoning ordinance • Development proposals and supporting information • Relevant staff reports • Commercial Area Study • MnDOT 2002 traffic counts 1.2 Prepare base mapping. Computerized mapping will be used to illustrate characteristics and development alternatives for the Study Area. The City will provide AutoCAD and Arcview files for this purpose. In addition to a base map and most recent aerial photography of the Study Area and surrounding property, the consultants will use existing GIS pazcel data to illustrate: • Current land use • Future land use • Current zoning • Ownership • Property valuation 1.3 Conduct kick-off meeting with staff. The consultants will meet with city staff to prepare for the initial steps in the planning process. The focus of this meeting will be organizing the Study Advisory Committee, establishing a meeting calendar, use of City newsletter and website to provide Study updates, and determining the need for collecting supplementary data. 1.4 Collect intersection data, SRF will collect a.m. and p.m. peak hour fuming movement counts at the following intersections ("*" indicates use of existing MnDOT counts from August 2002): • TH 149/I-494 North Ramps* Northeast Eagan Land Use Study Scope of Work September 2, 2004 Page 3 of 6 • TH 149/I-494 South Ramps* • TH 149/O'Neill Road • TH 149B1ue Gentian Road/Northwest Parkway • TH 149/Lone Oak Parkway* • TH 149 (N. Leg)/TH 55 • TH 55/Lone Oak Road • TH 55/TH 149 (S. Leg) 1.5 Conduct interviews. HKGi will conduct up to five interviews of stakeholders in the development of the Study Area The parties to be interviewed will be determined by staff. Potential candidates for interviews include Loan Oak Development group, NWA, EcoLab and C5M. The purpose of the interviews will be to learn about development plans and concerns that should be considered during the planning process. 1.6 Prepare goal summary. HKGi will su^ m~ri7E existing goals and policies related to the Study Area The summary will address current goals and objectives for land use in Special Area 1 and broader community goals outlined in the Comprehensive Plan. This summary forms a framework for evaluating land use options for the Study Area. 1.7 Conduct kick-off meeting with the Study Advisory Committee. The initial meeting of the Study Advisory Committee will include these items: • Review of Study objectives and work program. • Establishment of meeting schedule for Study Advisory Committee. • Initial orientation to Study Area • Review of goal summary and determination of applicable evaluation criteria. Task 2 -Define Development Scenarios 2.1 Create scenarios. Current City land use plans and the development proposal provide two scenarios to be considered. HKGi will prepare not more than two other scenarios that depict potential uses of this property. 2.2 Review scenarios with staff. The consultants will meet with city staff to review and adjust the alternative development scenarios. This meeting will begin the identification of "outcomes" of the scenarios. The outcomes are the data needed to analyze the implications of each scenario. The anticipated outcomes include population, jobs, and property valuation. 2.3 Review scenarios with Study Advisor~Committee. The development scenarios will be presented to the Study Advisory Committee. Feedback from the Study Northeast Eagan Land Use Study Scope of Work September 2, 2004 Page 4 of 6 Advisory Committee will be used make final modifications in the scenarios. This meeting will also provide the opportunity to adjust the evaluation criteria. 2.4 Conduct Council Checkpoint #l. This meeting will be a working session designed to update the City Council on development scenarios and next steps in the process. 2.5 4uantify the scenarios. The consultants will use the scenarios approved by the Study Advisory Committee to produce the outcomes required for analysis of the development implications. The outcomes will include estimates of jobs, population and property valuation. Task 3 -Analyze the Implications 3.1 Analyze traffic implications. SRF will undertake the following tasks to analyze the traffic implications of the development scenarios identified in Task 2: 3.1.1 Estimate the new total trips that will be generated in the am. and p.m. peak hours and on a daily basis using current ITE trip generation rates. 3.1.2 Distribute and assign the a.m. and p.m. peak hour trips (from development scenarios and adjacent development areas) to the existing roadway system and street intersections. 3.1.3 Analyze a.m. and p.m. peak hour operations at the intersections listed in Task 1.4 for existing and future build (one yeaz after construction) conditions. 3.1.4 Determine what improvements (if any) are needed to accommodate the proposed development with acceptable levels of service. Address the need for a new north-south connection to Lone Oak Road and the upgrade of Lone Oak Road. 3.2 Analyze financial implications. Ehlers will undertake the following tasks to analyze the financial implications of the development scenarios identified in Task 2 3.2.1 Review service impacts for major capital and operating areas with staff. Prepare estimated present costs for each scenario. Prepare city revenue estimates for each development scenario. 3.2.2 Review estimated school population with School District for each scenario. Prepare cost and revenue estimates for each scenario. 3.2.3 Review estimated impact on County services with County. Prepaze estimate of increase cost of services and revenues. 3.2.4 Prepare annual debt service, operating costs and revenue estimates for water, sewer and storm expansion requirements (if any). 3.2.5 Prepare projected property tax revenues for each development scenario. lIl Northeast Eagan La»d Use Study Scope of Work September 2, 2004 Page S of 6 3.3 Determine parks needs. HKGi will determine the need and characteristics of neighborhood pazk and trail facilities to support residential land use alternatives. HKGi will estimate the cost of these improvements. Ehlers and staff will use this information to determine options for funding the park and trail improvements. 3.4 Determine airport noise implications. HKGi will work with staff to determine the airport noise implications for residential development in the Study Area. As part of this task, HKGi/staff will identify other locations in Eagan with similaz noise levels. These locations provide additional context for the policy decisions in the Study Area. 3.5 Assess implications for commercial area supply. HKGi will review and assess the implications of the development scenarios in context of the 1994 Commercial Land Use Study. HKGI will use available GIS data to compare existing land use with vacant commercial land. This task does not include new market research. 3.6 Report preliminarydings. The consultants will report the findings from the above tasks as a series of technical memoranda. 3.7 Review findings with staff. The consultants will review the findings with staff. Feedback from staff will be used to make adjustments in the analysis and the memoranda. 3.8 Present findings to Study Advisory Committee. The consultants will use up to two (2) workshops to present findings and receive guidance from the Study Advisory Committee. 3.9 Conduct Council Checkpoint #2. This meeting will be used to present the findings to the City Council. 3.10 Conduct Open House. The open house will be used to present the findings and to obtain feedback from the community. The feedback format and tools will be designed to obtain desired guidance from the open house participants. Task 4 -Report Study Results 4.1 Prepare scenario evaluation. The results of Task 3 will be distilled into an evaluation summary using the criteria identified in Task 1.5. 4.2 Review evaluation with staff. The consultants will present the evaluation summary and obtain feedback from staff. 4.3 Conduct Study Advisory Committee workshop. The evaluation criteria will be presented to the Study Advisory Committee and used to facilitate a discussion of the alternatives. The objective of the workshop is to reach consensus on a findings from the Study Advisory Committee. 4.4 Prepare draft report. The findings of the process will be compiled into a report. 4.5 Review draft report with staff. 4.5 Review draft report with Study Advisory Committee. Northeast Eagan Land Use Study Scope of Work September 2, 2004 Page 6 of 6 4.7 Present final report to City Council. Budget The budget for undertaking this scope of work is $59,735. This amount includes staff time and reimbursable direct expenses (mileage, printing and overnight delivery) for a1I work tasks. MEETING NOTES NORTHEAST EAGAN STUDY GROUP JUNE 2, 2005 - All Group members, except Duey Bendt, were in attendance (Mr. Bendt contacted Mr. Fifield separately to share his comments). - Mr. Fifield provided an overview of the project to date and discussed the topic of public comment. He asked Committee members if they had a desire to entertain more public comment and if so, in what sort of format. - Group Member Carla Heyl commented that the Group has heard a lot from the public during the meetings to date; however, comments on the survey results may be appropriate provided time is limited. - Group Member Richard Pletcher stated that he is not interested in a debate or point counterpoint. He believes previous input has not been beneficial to himself or the Group, but more an opportunity for the property owners and their representatives to seek clarity for their points. - Group Member Maggie Jensen stated she believes the City Council should take any additional public input once the Study Group completes its task; she said the group needs to deliberate and she is not interested in any additional public comment. - Group Member Chuck Thorkildson stated his agreement with Carla Heyl that limited comments, specifically on the survey results, would be appropriate. - Group Member Dan Flanagan stated that brief comments from the public would be okay. - When questioned by Rusty Fifield, Maggie Jensen stated she would be okay with comments provided the parameters are set and the timeframe is very short. - Based on that discussion, Rusty Field opened the floor to public comments and none were offered. He then moved on to discuss the format of the final report which would include: 1) preferred land use for NE Eagan, 2) rationale for supporting that preferred land use, and 3) statement of preferences by each committee member to be summarized in the final report to the City Council. - Carla Heyl stated that she reviewed all the previous material supplied to the Study Group and noted that the driving force behind the study was the Loan Oak/Laukka proposal but q the study expanded to cover a much broader area. She stated that the Study Group received the policies from the Comprehensive Guide Plan, they reviewed various land use scenarios, including the freeway interchange. She believes the present land use is appropriate, taking into account airport considerations and 20 years of planning for the area that was not wrong and that necessary infrastructure improvements will come with additional development. Office service is still appropriate at this location and that it may be the best area for office service in the City; and the market argument is not consistent - she referenced Ecolab and Interstate Partners. She stated that residential would be incompatible for a number of reasons including that it would create an isolated pocket of residential inconsistent with Eagan's planning efforts over the years. She did suggest that Eagan should work with Inver Grove Heights to add an additional interchange. - Chuck Thorkildson stated that he has learned a lot through this process. He feels the airport is a huge issue and articulated that there was housing, with similar existing airport impact, added in Mendota Heights and Sunfish Lake, yet both cities continue to have hundreds of complaints a month filed with the MAC due to airport noise. He went on to say that although high density is considered more compatible, residential development is simply a bad idea that does not fit because it is also incompatible with other existing land uses in the area. He stated all scenarios were financial winners for the City. He said the existing Land Use Plan and Zoning should remain and also supports a new interchange in Inver Grove Heights. - Maggie Jensen said the Comp Plan was not a product of caprice, but was well thought out and planned for years by people that cared about the community. She went on to state that the plan has served the City well and finds no good reason to change the plan. - Mark Filippi stated there is no justification for change because you cannot noise insulate someone's back yard. Access is ideally situated for commercial/industrial development. He also stated the area is ideal for the easterly expansion of the I-494 strip and that the addition of an isolated park to serve residential in this area is also not a good idea. - Pletcher asked if it is the assumption is that high density residents don't use the outdoors as much? If we create a lot of rental or high density in an area, will we have a concentration of one housing type in an unattractive area? l~ - Dan Flanagan stated that given all of the information presented to the Study Group, the Comprehensive Guide Plan and Zoning for the area should not change. - Richard Pletcher supports the current plan and rhetorically asked why should the City make a change? He stated the area developing faster doesn't mean it will develop better; if it doesn't develop now, will it not develop in the future? He also supports joining forces with Inver Grove Heights to add an additional interchange and further stated that adding housing to an airport corridor simply does not make sense. - Pat Todd supports no change based on comments by existing area businesses/stakeholders who support no change to the plan or zoning. Adding residential to the area may impede future expansion plans of the businesses in the area. She said that unlike Thomson West that developed near a residential area, business owners in NE Eagan have built and/or invested in the area with knowledge of neighbors being of like development. She totally agrees with the airport concern and reiterated that Mendota Heights built homes in the corridor fully aware of the noise issues, but new homeowners there still complain about the airport noise. - Rusty Fifield commented that based on the statements by each of the members, it is clear the group does not support any change to the current Comprehensive Guide Plan or zoning for the area. He stated that that the final meeting would be June 23 and a draft report would be distributed by June 17. He also stated that the purpose of the final meeting will be to fine tune the text of the report to accurately reflect the Study Group's position.