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HomeMy WebLinkAboutCity of Stillwater Comprehensive Plan 1995CITY OF STILLWATER fJ! M*.vlf►i�&R Tl.=- W %h&& "It; l X11 COMPREHENSIVE PLAN (1995 - 2020) December 12,1995 ••♦ i0l11fd �R1C�iL�[M1l FSu� a . —_ 111111[ �TLk 1.1", F3i Floc .• ........ COMPREHENSIVE PLAN (1995 - 2020) December 12,1995 CITY OF STILLWATFR COMPRE14ENSIVE PLAN (1995 - 2020) December 12,1995 "Stillwater seems to be quite a happy community, and if it did not nurse an aspiration and ambition to grow and prosper beyond the imagination even to optimistic minds, there would seem to be no great need to take up general planning and proposing the various civic betterments which quite naturally involve considerable expenditure for their ulti- mate completion. However, it is generally recognized not only by the well- thinking people of Stillwater but by many outside prominent business men that present Stillwater has hardly begun to be what destiny intended, and if such is the case -- and we firmly believe that it is -- the people ,of Stillwater have started the movement of planning for better Stillwater none too soon. " - General Plans for the City of Stillwater Morell and Nichols 1918 CITY OF STILLWATER COMPREHENSIVE PLAN PREPARED BY: THE STILLWATER COMMUNITY DEVELOPMENT DEPARTMENT WITH ASSISTANCE FROM MANY DECEMBER 12, 1995 MGny persons and groups contributed to the preparation for the adoption of the Comprehensive Plan. In addition to the City Planning Commission, other city commissions and committees provided vaivable information and assistance: Parks and Recreation Board David Junker, Chairperson Heritage Preservation Commission Jeff Johnson, Chairperson Downtown Parking Commission Paul Simonet, Chairperson The technical work for the Comprehensive Plan was prepared by City Staff with consultants assistance in the areas of GIS development, fiscal impact, utility engineering and transportation planning as listed below: Stephen Russell, AICP Ann Pung- Terwedo Sue Fitzgerald Shelia McNamara Shirley Montbriand Melissa Grunseth Nile Kriesel David Magnuson Klayton Eckles, P.E. Tim Thomsen Jerry Happel, Insights Mapping Glen Van Wormer, SEH, P.E. Dick Moore, SEH, P.E. Joyce Levine, Camaros Rob Tautges, Tautges Redpath & Co Stefan, Larson Associates Roger Tompton Community Development Director, Project Manager City Planner, Project Planner City Planner Secretary Secretary Student Intern City Coordinator City Attorney City Engineer Parks Director GIS Development Transportation Planning Utility Planning Fiscal Impact Fiscal Impact Graphics Graphics The City of Stillwater Comprehensive Plan was developed in a regional and county context. Jane Harper, Washington County and Tom Caswell, Metropolitan Council were helpful in defining those planning policy contexts. Most importantly, the Comprehensive Plan could not have been prepared without the participation of the citizens of the Stillwater community. Of particular note is the ward network participates and Cory Mohn, Stillwater Area Open Space Committee, who contributed their time and effort over the many month of Comprehensive Plan preparation. The Joint Stillwater City/Town Task Force worked hard to develop a Comprehensive Plan that represented the interests of the Stillwater community. Members of the task force were: Stillwater City - Jay Kimble, Terry Zoller, Kirk Roetman, Don Valsvik, Jerry Fontaine. Stillwater Township - Dave Johnson, Diane O'Brien, Karen Reidt, Jeff Pratt, Richard Schubert. C_ MPVVIN60195PLANNBCOMP -PLA. LST City Council Jay Kimble, Mayor Gene Bealka, Councilperson Rich Cummings, Councilperson Eric Thole, Councilperson Terry Zoller, Councilperson Planning Commission Jerry Fontaine, Chairperson Duane Elliot Glenna Bealka Dorothy Foster Don Vaisvik Terry Zoller Darwin G. Wald Robert Hamlin Kirk Roetman Administrative Staff Nile L. Kriesel - City Coordinator David Magnuson - City Attorney Stephen Russell - Community Development Director Klayton Eckles - City Engineer David Junker - Public Works Director Tim Thomsen - Parks Director Dennis McKean - Secretary - Manager of Water Department Don Beberg - Police Chief George Ness - Fire Chief Morli Weldon - City Clerk Diane Deblon - Finance Director Allen Zepper - Chief Building Official Lynn Bertalmio - Library Director TABLE OF CONTENTS 1.0 Introduction 2.0 Community Character 3.0 Land Use 4.0 Transportation 5.0 Natural Resources and Open Spaces 6.0 Housing 7.0 Local Economy 8.0 Parks, Riverfront and Trails 9.0 Historic Preservation 10.0 Public Services and Facilities 11.0 Fiscal Impact 12.0 Implementation 13.0 Special Area Plans APPENDIX APPENDIX A GLOSSARY APPENDIX B COMP SEWER PLAN APPENDIX C COMP WATER PLAN APPENDIX D FISCAL STUDY OF COMP PLAN INTRODUCTION Past planning and need for comprehensive plan update. The City of Stillwater was one of the first communities in the state to prepare a Comprehensive Plan. The first City Comprehensive Plan was adopted in 1918. This initial plan was influenced by the "city beautiful movement ". That movement started in Chicago and spread to communities throughout the Midwest. The landscape architectural firm of Morel and Nichols were the authors of the original plan. The emphasis in the plan was on parks, landscaped streets and parkways, civic centers and walkways, particularly along natural areas such as ravines, lakes and the St. Croix River. The original 1918 plan provided the city with its first map for the future guiding public improvement and city growth for the next 50 years_ The city design proposed in the original plan has been achieved particularly in the downtown riverfront area through the construction of Lowell Park and the stairway connecting the downtown with surrounding residential areas. The early 1918 planning effort provided the city with a good start at recognizing some of the city's most significant natural resources; the St. Croix River; the bluftlines, ravines and lakes and using them to form the city. The current 1980 Stillwater Comprehensive Plan is old and in need of update. The plan was prepared and adopted between 1978 - 1980. Over the past 15 years, much has changed. The City has grown from a population of 12,300 to over 15,000. Employment has grown from 5,700 to 8,400 and the number of households in the city has increased from 4,000 to 5,300. The expectations and attitudes of the current population has also changed. During the 1980's and early 1990's, commercial and particularly residential development has occupied most of the available vacant land in Stillwater. City population growth has occurred but city services and facilities remain essentially the same today as they were 15 years ago. Over the past 15 years, traffic has increased, on highways, and arterial and neighborhood streets. Increased travel demand is a result of city growth but also as a result of increase mobility, more cars per household and development in the area surrounding Stillwater that rely on Stillwater for business and pleasure. The city's natural setting; the St. Croix River, ravines, its lakes, wetlands, bluffs, forests and natural areas are effected by growth and change. Vacant sites that were once considered 1 -1 undesirable because of slope, location or lack of services are now being considered for development because of site amenities, view, natural setting, market conditions or lack of vacant available lots. The Stillwater population is changing. Families with children dominate recent household growth, Many of the new households heads work in the Twin Cities Metropolitan area outside the Stillwater area. Recent senior housing projects provide an alternative to the single family house for retirement age people who wish to live in the community in smaller residence. City household income level has increased but remain behind Washington County levels. Attitudes of residents have also changed based on a recent resident opinion survey. There is concern for growth, the preservation of the city's historic resources and community character as well as concern for economic development, improving the tax base (lower taxes) and more and better city service and facilities. According to the survey, residents are basically satisfied with the existing "quality of life" with minor exceptions. Washington County and the East Metro Area is also changing. Washington County has grown in population from 113,500 in 1980 to 169,300 in 1994. This represents a 67 percent increase. The immediate area around Stillwater has grown from 17,700 in 1980 to 21,100 in 1993 a 20 percent increase. The area around Stillwater can be defined as the Stillwater service area and/or market area and depends on Stillwater for governmental, educational, institutional, cultural, commercial, medical and recreational services and facilities. The current comprehensive plan update process takes a fresh look at existing conditions, trends and current planning issues for Stillwater and the surrounding area. From this study, land use policy direction to guide future growth and change is developed in this comprehensive plan. The Stillwater Setting Stillwater's position in Washington County and the St. Croix Valley has changed over the years. Eighty -five years ago, in 1910, Stillwater accounted for 40 percent of Washington County population. The growth of urban areas, Cottage Grove, Woodbury and Oakdale and rural townships has reduced Stillwater's percentage of county population to 10 percent. Even with growth of the areas surrounding Stillwater, Stillwater remains the historic, cultural, governmental, educational, medical, religious, employment, entertainment and recreational center of activity for the St. Croix Valley. The Metropolitan Council recognizes this Stillwater's function by calling it, along with the cities of Bayport and Oak Park Heights, a "freestanding growth center" in the following terms: "they have a full range of services and thus are able to accommodate a full range I --.r. aotiy. 95 15 � u11SG. 5T: f )5.4 gq 1 f �► Ira may: r-R of urban land uses. Freestanding growth centers are physically separated from the larger urban areas by undeveloped land. Also they have an employment base within the community that is large enough to provide work for the local population." The definition and understanding of Stillwater's role in the region is a key ingredient in planning for Stillwater's future. Stillwater is connected to the East Twin Cities Metropolitan Area primarily by Highway 36, a four -lane expressway, Highway 5 and Highway 96, two -lane arterials. Highway 95 travels north and south along the St. Croix River connecting Stillwater to Marine on the St. Croix on the north and Afton on the south. County 15, a two -lane road, marks the western boundary of the Stillwater planning area and connects Highway 36 on the south to Highway 97 five miles east of Forest Lake on the north. A new Highway 36 interstate bridge connecting the Stillwater area with Wisconsin is planned to be completed by 2000. The new bridge will result in major improvements in circulation patterns throughout the community. Regional and non -local traffic will be reduced on neighborhood collector and minor arterial streets. Regional and County Plans This City of Stillwater Comprehensive Plan update has been developed in context with other regional and county planning efforts affecting the City of Stillwater. The Metropolitan Council recently completed its new regional policy framework document the Regional Blueprint (September 1994). The new regional policy document charts a direction and process for future growth and development of the region. Voluntary partnerships and cooperation with local government for the achievement of local and regional objectives is stressed. This City of Stillwater comprehensive plan addresses the major regional policies in an affirmative way appropriate to local conditions. Special consideration was given to ensure growth and development, transportation, sewer and water service and housing policy areas and action programs are consistent with regional policy direction. Washington County is currently conducting an update of their comprehensive plan. The City of Stillwater has actively participated in the update, in order to coordinate city planning with Washington County planning. Special areas of consideration and coordination are transition area planning, transportation planning, economic development, linear park and trail system planning and scenic highways. Policies in the Washington County Comprehensive Plan are coordinated and consistent with the Stillwater Comprehensive Plan. Some of the City of Stillwater comprehensive plan policies and programs call for continued work with Washington County to implement the plan, particularly in the areas of transportation and linear park and trial planning. 1 -3 Plan Update Process The City of Stillwater Comprehensive Plan update process began in August 1993 with City Council adoption of a Comprehensive Plan Update Work Program. The work program scheduled the plan update to be completed in one year - August 1994. The update process was comprised of three phases: (1) issue identification, data collection and goal formulation, (2) alternative plan development and review and (3) final plan selection and adoption. The first phase included a city -wide opinion survey to help identify community planning issues. Growth and environmental quality were key issues identified. During that phase, a city -wide land use GIS system was developed and socioeconomic census information analyzed and mapped for fifteen city planning areas. From the information, the Existing Conditions Report was prepared. The report identified twelve key planning issues, provided existing conditions information and proposed preliminary goals and objectives. The report was presented to the community at a public hearing. The public hearing confirmed the key issues and provided an opportunity to describe the interrelatedness and complexity of the Comprehensive Plan. The second phase, alternative plan preparation and review, resulted in the developed of four plan alternatives, A, B, C & D, that evolved into eight alternatives. The alternatives ranged from full development of the planning area to a "no- growth" Alternative "D ". Impacts of alternatives were considered along with existing conditions information and the goals and objectives developed during Phase I. A major concern expressed during the Phase II review process was the impact of growth on the Urban Rural Transition Planning Area, URTPA, semi -rural area and on existing city, streets and small town feeling. Stillwater is viewed as a "freestanding growth center" in context with the region and Washington County. The greater regional and county -wide growth issues were considered during this phase of plan development and the role Stillwater can play as an urban area within the county and regional. Phase II, alternative development and consideration, took over a year. During Phase II time, neighborhood meetings were held and a city -wide ward network established to comment on the plan. A joint Stillwater City /Stillwater Township planning task force was established to work together on common planning issued for the city expansion area. All this community input was a part of alternative plan selection. As an indication of the extent of community input, over 50 community public meetings were held. Attended by an estimated 3,000 participants. The alternative review process was carried out over a sixteen -month period from June 1994 to October 1995, and resulted in the section of the final plan. 1 -4 Phase III includes public hearings before the Planning Commission and City Council on the selected comprehensive plan alternative and its adoption. After the City Council adopts the City of Stillwater Comprehensive Plan, it will be submitted to the Metropolitan Council for review with regional blueprint and liveable community act polices and approved. After approval by the Met Council, the comprehensive plan will be officially approved and in effect. The Stillwater Comprehensive Plan The City of Stillwater Comprehensive Plan contained in this document is organized in twelve (12) sections based on subject area. A thirteenth (13) section provides examples and direction for preparation of special area plans. The sections are: Community Character (2.0) Land Use (3.0) Transportation (4.0) Natural Resources and Open Spaces (5.0) Housing (6.0) The Local Economy (7.0) Parks, Riverfront and Trails (8.0) Historic Preservation (9.0) Public Services and Facilities (10.0) Fiscal Impact (11.0) Implementation (12.0) Special Area Plans (13.0) The combined sections "tell the story" of the Stillwater plan. First comes Community Character (2.0), the thing that makes Stillwater so special and provides direction for the remaining plan sections. Community character includes both the physical character of its natural setting and buildings as well as the more subtle character of activity patterns and neighborhoods. From community character, the other sections flow like the St. Croix flowing under the lift bridge. The next two sections Land Use (3.0) and Transportation (4.0) provide the framework or backbone to the plan. The land use plan map locates the type and intensity of activities across the community. For Stillwater, the land use plan in large part reflects existing land use patterns for existing developed area and extends those existing patterns to new areas with more emphasis on natural resources and public spaces. Transportation and land use are closely tied. Land uses in the immediate area and throughout the region and county create the demand for travel. The transportation section tries to accommodate that land based travel demand; cars, transit, bikes and pedestrian by developing a transportation system made up of streets, roads, highways and trails. 1 -5 Natural Resources (50) ,Housing (6.� and the Local Economy (7.0) describes types of land use in more detail and provides city policy direction for each area. Natural resource policy provides direction for the identification and protection of natural resources for all areas of the community but particularly the URTPA expansion area. Existing city ordinances, i.e., shoreland, tree preservation, wetland, flood plain, sloped areas, provide regulation to protect those natural resources. Special area planning, environmental review and the planned unit development process provide other methods to account for and preserve natural resources. Seventy -five percent (75 %) of Stillwater land use is housing. The emphasis in the housing section, Section 6.0, is on providing a variety of housing types (single family detached and attached and multi - family) in appropriate locations. The challenge for Stillwater will be to maintain its diversity of housing types, densities, tenures and affordability. The Local Economy Section (7.0) is key to the financial health of Stillwater. Less than 10 percent of land use is commercial or industrially use. Yet businesses pay 30 percent of city taxes. The Local Economy Section and land use plan designates locations for economic expansion north of Highway 36 between County Road 5 and County Road 15. The Parks, Riverfront and Trails Section (8.0) provides overall policy direction for parks and trails planning in Stillwater_ This is just the start of parks planning. Much has to be accomplished through park acquisition, new and existing park planning, and traiiway and ravine planning and implementation. The Historic Preservation Section (9.0) is a summary and status report on historic preservation planning in Stillwater. Much has been done particularly in the downtown area to preserve the historic character of old Stillwater. In Stillwater historic preservation is at the heart of community character and its importance is reflected in past city efforts. Public Services and Facilitie Section (10.0) must be planned and supplied to accommodate land use. For Stillwater, services and facilities include. police and fire protection, streets, water and sewer services, storm water control, parks and trails and administrative services. The phasing of city growth and expansion with the provision of public services and facilities is described in this section. The Fiscal Impact Section 111.01 examines the plans impact on city government and resident taxpayers. The section views fiscal impacts as added property value from plan development versus added city costs of providing services and facilities. Policies and recommendations are made in this section to minimize city costs and financial risks. The Implementation Section (12.0) describes the actions; programs, new regulations, Era detailed plans and studies, capital improvements that are needed to carry out the comprehensive plan as described in the preceding sections. The zoning ordinance, subdivision regulations and capital improvements program implement many of the plan policies and programs. Special Area Plans Section (13. 0) is one way to carry out general city -wide comprehensive plan goals, objectives and polices. To date, area plans have been prepared for Downtown, West Stillwater Business Park and Brick Pond Area. The comprehensive plan calls for special area plans in city expansion areas and in existing neighborhoods. Area plans are a way to implement the comprehensive plan. The comprehensive plan is contained in sections 2.0 - 12.0. Each section begins with a brief introductory statement. Then key goals are listed. Following the goals is a discussion of conditions and issues that relate to the goals for the subject area and provide a rational policy direction contained in the objectives, policies and program statements. An implementation index that lists the responsible agency(s) and project or action for each policy or program ends each section. The entire, combined implementation program is contained in Section 12. 1 -7 City of Stillwater Comprehensive Plan December 12, 1995 Community Character Defining Community Character This chapter is concerned with the sense of Stillwater. How Stillwater looks and feels. It attempts to translate Stillwater as a special place into tangible policies and programs needed to keep Stillwater a fine place to live, work, visit and raise a family. This effort is embodied in the following key goals: Goal 1: Strengthen Stillwater's unique character Goal 2: Preserve and strengthen Stillwater's quality of life. Goal 3: Maintain diversity and preserve and enhance views of dominant features natural and manmade. The Landscape Stillwater's character is defined by natural features, the St. Croix River, the river valley bluffs, historic structures and the rolling hills and lakes. The historic section of the city lies in and around a "bowl" defined by the St. Croix river bluffs on the south, west and north and the river and Wisconsin bluffs to the east. The Built Environment Downtown The downtown commercial historic district is made up of brick structures which were generally constructed during the height of the lumbering period dates (1860 - 1910). The core of these structures are on Main Street, a two -lane roadway. The perimeter of the central district is marked by contrasts. To the south are the steep 2 -1 chalk cliffs of the river bluffs and a natural vegetative buffer along the river. The north is a diverse area centered around the historic Staples Mill, a new brick office building and a manufacturing building. A reproduction of an old railroad depot and the remains of the old territorial prison define the northern edge of downtown Stillwater. Bordering the downtown on the east, is the St. Croix River, a National Wiid and Scenic River. Lowell Park provides a buffer and transition between the downtown commercial area and the river. To the west of the Central Business District is a bluffline. The church steeples, historic courthouse and Victorian homes set against blufflines gives Stillwater its enclosed, unique New England character. Residential Areas Stillwater neighborhoods are each defined by their boarders as well as their architectural uniqueness and historical values. As Stillwater expanded out from the core, lumber barons built their great mansions overlooking the river. The homes were constructed in the Victorian style typical of the period. The north and south hills are defined as areas where the wealthy resided. As Stillwater developed during the lumber boom, land for new housing became scarce, especially housing for the working class. Some large parcels were subdivided into small lots and small vernacular houses built. This contrast in housing styles, sizes and periods of construction create diverse, interesting neighborhoods. The existing ravines and bluff areas define residential areas, Many ravines were either filled to build roads or used as dumping grounds. Today the remaining ravines offer open space and natural and wildlife areas. With the demise of the lumber industry after the turn of the century, the city boundaries did not expand. All new residential development was concentrated within the city. The houses of the time consisted of craftsmen style and bungalow styles. Within the residential areas, corner stores were established to service the neighborhoods. It was not until the 50's that the city began to physically expand again. The Forest Hills and Fairmeadows area were developed. These residential areas consist of ranch -style homes on large lots with mature trees and well landscaped yards. In the 70's, the Highway 36 commercial corridor began to develop. Commercial and industrial development occurred along the corridor, characteristic of other suburban areas. The 70's, saw the Croixwood Development (Orrin Thompson). These homes were developed for young families. Today Croixwood still lures young families and has become a neighborhood with a strong sense of residential community. The houses in this neighborhood generally consisted of two -story, split level and ranch style homes. The 80's saw the development of Oak Glen. Home sites on its executive and championship golf course makes it quite appealing. In the 1990's, the city has experienced the development of the 200 -lot Highlands neighborhood. The Highlands of Stillwater was targeted for young families. The homes are typically split -level and tri -level residences. The neighborhood is adjacent to Lily take Elementary School and includes a five acre neighborhood park. The area is close to shopping and jobs in the West Stillwater Business Park. Entryways It is primarily from the streets that the City of Stillwater's form and character is perceived. The city's entryways are important gateways which introduce and began to establish Stillwater's character. Stillwater is fortunate to have many strong natural entryways. 1).1) South Entrance Traveling east on TH 36 from the commercial strip in Oak Park Heights /Stillwater, the Washington County Government Center, the Northern States Power King Plant and various residential areas can be seen. Once past the Exit 23, Bayport/Oak Park Heights bridge, the St. Croix River Valley opens to view. River recreation activities can be seen on sunny summer days. The large expanse of water along with the river bluffs creates a breathtaking entrance to the river valley. As TH 36 veers northward and merges with TH 95, the road drops below the tree line so the river can no longer be seen. At the base of the decent there area cluttered billboards and wood - framed residential structures. The natural environment begins to overtake the highway at this point. The natural vegetation and sheer chalk bluffs on the west side of the highway creates a natural tunnel forcing one northward to its end. A break from the tunnel is the Oasis Restaurant and Aiple Barge Terminal. The St. Croix River opens to view at this point. Once past the Aiple Terminal, the natural environment again overtakes the highway. Suddenly, river views open up and the historic lift bridge can be seen. The Commander Elevator, Dock Cafe and Brick Alley buildings are set before the eye. As the highway veers slightly northwest, the downtown opens up. The historic buildings, church steeples, lights, signs, parked cars and pedestrian activity is there. The river town environment takes over. Bridge Entrance from the east. As one proceeds from New Richmond, Somerset and the agricultural plains of Wisconsin along TH 65, the countryside begins to change from farmlands to forest and rolling hills. At Houlton, the road travels to the right and begins to decent through heavy vegetation. Cornfields and dairy cattle are left behind and views of the historic Stillwater lift bridge take focus. First in sections and then in full view, you are suddenly in a different place, a different time. Church steeples and red brick buildings silhouette the eastern river bluff with riverboats, a green ribbon of park land and grey concrete walls defining the river's edge. The bridge begins to retreat as you draw closer. Suddenly, with a jolt you realize there are parks on the right and left, riverboats, train rides, dining and shopping. What is this place? Where can I park? North Entrance The railroad bridge in the residential area known as "Dutchtown" on TH 95, north of downtown Stillwater, begins the north entry to the community. Once south of that porthole, the vegetation and sheer bluffs surround the highway. The old St. Paul to Stillwater railroad line runs parallel with the highway. Along this stretch veiled views of the river can be seen through the dense vegetation. When the highway turns and travels slightly southeast, views of historic homes and church steeples on the river bluffs circling downtown open up. The Minnesota Zephyr and Old Territorial Prison Site are presented as the entrance gates to downtown Stillwater from the north. Viewing south from this point are buff color warehouse buildings, Staples Mill and the new three -story prairie style Desch office building. Vacant land and an old converted service station are located on the east side of the highway providing an opportunity for redevelopment and enhancement of the area. Myrtle Street Entrance The Myrtle Street entrance to downtown Stillwater is a secondary entrance used primarily by residents of Stillwater. Proceeding west on Myrtle Street, crossing Owens and Greeley Streets, the area is residential with a corner - grocery store, parking lots and churches. At Harriet Street, the entrance to downtown Stillwater begins. Myrtle Street moves 2 -3 slightly at a northeast angle then suddenly the St. Croix River Valley and downtown Stillwater can be seen. The historic gazebo at the river's edge is the focal point which draw your senses down the hill. The gazebo is always in sight. At Fourth Street, higher density residential uses and commercial offices line the street. Third Street is the break between the residential area and downtown commercial historic buildings. Osgood Avenue /South Fourth Street/South Third Street Entrance Exiting off of TH 36 heading north the entrance to Stillwater is shared by the community of Oak Park Heights. Osgood Avenue is a combination of both commercial /office uses and high density housing. The Fairview Cemetery adds an open space element to the west side of this corridor. Once at Orleans Avenue, the community's residential area is clearly defined. South Fourth Street and South Third Street are both residential streets with mixtures of Victorian homes and modest, front gable working class homes. These streets lack a formal streetscape setting which would enhance the character of these entrances. At Churchill and South Fourth Street, a clear, established neighborhood commercial area is present. Proceeding on either South Fourth Street or South Third Street, river valley views are first distinguished at Pine Street where St. Michael's Church, the historic courthouse along with classic Stillwater homes form this picturesque neighborhood. The hill begins to slope toward downtown at the historic courthouse and one is viewing the rooftops of downtown buildings and the St. Croix Valley. Multi- family housing in a mixture of structures without a uniform architectural style are on the west side of the street with an open ravine on the east which underlines the view of downtown Stillwater. You are surrounded by commercial historic buildings. As one turns east on Chestnut Street, the historic Stillwater lift bridge with commercial buildings frame the street. Scenic Overlooks Stillwater has two magnificent scenic overlooks. High above downtown Stillwater, on the river bluffs of the St. Croix Valley, the views are spectacular. These scenic overlooks are located at the end of South Broadway Street and Pioneer Park. From these locations one can watch the activities of downtown Stillwater, the historic lift bridge, river and Lowell Park activities and the changing seasonal colors of the river valley. Objectives, Polices and Programs The following community character objectives, polices and programs are grouped under three headings: Open Space and Rural Setting: Streetscapes: and Character of New Development (objectives, policies and programs dealing with historic preservation and community character are in Section 9.0). Open Space and Rural Setting Objectives: Maintain and enhance Stillwater's physical diversity, unique image and small town feeling. Preserve the rural backdrop and maintain views of important natural features including the St. Croix River Valley and natural open space areas. Preserve ridge lines and hilltops in view corridors in their open natural condition. Policy 1: In making tend use decisions, the city shall recognize the importance of open space and the presence of open space as dominant features such as the St. Croix River Valley as an integral part of Stillwatees community 2 -4 character. Policy 2: Every effort shall be made to preserve and enhance the views of surrounding land, hills and bluffs. Policy 3: The city shall strive to locate new buildings outside of view corridors. Policy 4: The City shall discourage changes that will permit development on bluff lines in view corridors. Policy 5: Well- designed development that will be harmonious with its setting and /or enhance the city's image shall be encouraged. Program (1) identify vistas and "view corridors" of community -wide value to be preserved and enhanced. Program (2) Through the development review process, site buildings so that views and existing designated view corridors are not blocked. Program (3) Establish specific zoning and /or design guidelines for buildings and signs visible from TH 36 for the existing business park and new R & D office park. Program (4) Strengthen the city's bluffland /shoreland ordinance to preserve identified ridge lines and hilltops in their open, natural condition. Program (5) Consider establishing special building height limits in the zoning ordinance for specific areas for multifamily residential development. The bluffland /shoreland ordinance should be strengthened and expanded to preserve blufflines and prominent hilltops from development; to strictly regulate development on hillsides in terms of parcel sizes, building pad locations, road layouts, height of buildings relative to bluff lines, height and appearance of sheer vertical walls, exterior colors and landscaping; to set design and architectural standards for building sites; and to require architectural and site approval. Taller buildings with higher residential density may forestall encroachment of development on the open space that encircles the city. They should be allowed in certain areas if it is determined that they will not obstruct important views or be incompatible with their surroundings. Streetscapes Streets create one of the first and most lasting impression of the community for residents and visitors alike. New streets should be built at a scale comfortable to pedestrians. To that end, the amount of paving and the apparent width of streets should be reduced. Public and private street landscaping is a must. Tasteful directional signs and adequate street lighting should be installed along arterials to help visitors navigate the area. Objectives: Enhance the function, safety and appearance of Stillwater's streets and highways. Define and enhance the entryways into the city and its neighborhood. improve the appearance of existing major streets Policy 6: The city will make every effort to beautify its existing streets and build new streets at a scale comfortable to pedestrians (i.e., Pine Street, Greeley Street, Fourth Street, etc.). Policy 7: The amount of paving and the apparent width of streets shall be reduced physically and visually in new developing and existing areas where appropriate. Policy 8: The city shall encourage public and private landscaping along all major streets. Policy 9: A street trees planting plan shall be developed for major streets. Policy 10: The installation of tasteful directional signs (to downtown and other points of interest) along important thoroughfares shall be encouraged. Policy 11: The city shall continue to foster improved sign design through sign program requirements and strict adherence to sign regulations. Policy 12: No commercial billboards are permitted Character of New Development All new buildings in Stillwater should be designed to contribute to the appearance of the city and fit in with existing development. The city can help 2 -5 establish an identity for residential areas by encouraging architectural diversity and interest. Objectives Establish neighborhood identity through subdivision design, preservation of natural resources, public improvements and parks. Create distinct, identifiable neighborhoods with neighborhood focal points. Upgrade the quality of public, residential, commercial and industrial development throughout the city through community education and design review. Preserve Stillwater's architectural heritage. Maintain the unique qualities and architectural flavor of downtown and of west side residential areas. Prevent the destruction of historic buildings and incompatible remodeling. Preserve heritage trees. Policy 13: The city shall strengthen its area planning and architectural design review process and guideline and shall continue to monitor adherence to the conditions of approval placed upon projects. The intent of this policy is to promote good site planning and architectural diversity of new neighborhoods. in general, the city seeks to avoid monotony and sameness and to promote architectural interest and neighborhoods identity through the design of new developments. Policy 14: The city encourages the restoration and reuse of historic buildings. Policy 15: All development and redevelopment shall add to not detract from existing significant city - identified architectural landmarks, buildings and areas. Policy 16: The city shall make every effort to preserve heritage trees and major groves or woodlands. Policy IT Support neighborhood groups interested in neighborhood design and existing areas. Program (6) Keep outlying lands in large parcel sizes so that a specific plan or comprehensive design plan can be prepared for an entire area before development occurs. Program (7) Prepare specific area plans for appropriate areas to promote quality and diversity, preserve view corridor and shared natural resources and open spaces in well - planned developments. 2 -b City of Stillwater Comprehensive Plan December 13, 1995 Land Use Introduction Stillwater's land use pattern is well established and unlikely to change significantly. This chapter examines past city growth and development trends and provides direction for future growth for the next 25 years to 2020 by defining land use categories and mapping changes in land use in the existing city and in the Urban Rural Transition Planning Area (URTPA). The key goals for this chapter are: 1. Maintain Stillwater as a separate and distinct community distinct from the surrounding area. 2. Use land map as the overall land use policy statement by designating residential, commercial and parks and open space lands appropriately located with adequate access and buffering from adjacent uses. 3. Create new interesting quality designed neighborhoods that related to their natural settings and surroundings, developed areas, protect natural resources, provide central parks and open spaces and are interconnected by trails to neighborhood and community destinations. 4. A greenbelt shall be established around the ultimate Stillwater planning area to separate suburban and urban development from semi - rural and rural Washington County areas. Past Growth Growth and how growth is regulated and phased is a key issue of the comprehensive plan. Over the past 20 years, Stillwater has grown at a moderate rate, 36 percent. The 70's saw the 3 -1 development of the Croixwood neighborhood containing 800 single family housing units. The 80's saw the development of the Oak Glen neighborhood smaller in terms of number of housing units, 450, but larger in terms of land area. So far the 90's has seen the subdivision of the last large vacant site located in the City of Stillwater, the Benson Farm, and the development of a 200 -small single family lot subdivision. Major residential developments since the 70's have provided for small lots, Highlands (4.5 dwellings per acre), medium sized lots, Croixwood (3.2 dwelling units per acre) and large lots Oak Glen (1.85 dwelling units per acres) for single family housing. Multifamily and attached single family housing, along CR 5 (5.0 - 10.0 dwelling units per acre) has been constructed in the Cottages Planned Unit Development, 240 multifamily units 60 assisted (12.5 dwelling units per acre) in the Brick Pond planning area, 74 attached duplex single family units and Oak Glen 60 townhouse units (4.5 dwelling units per acre). City of Stillwater population growth from residential development since 1970 has been steady but less than the population growth rate experienced in Washington County or the immediate greater Stillwater area. For the 1970 to 1990 period Stillwater grew from a population of 10,196 to 13,882 or 36 percent. The Greater Stillwater Planning Area (Oak Park Heights, Bayport, bake Elmo, Bayport, Stillwater, Grant and West Lakeland Townships) during that same period grew in population from 12,073 to 21,108 or 75 percent and Washington County matched the greater Stillwater growth rate growing from 83,003 to 145,896 or 76 percent. Past growth rates for Stillwater, the Greater Stillwater Planning Area and Washington County are shown on Table 1 and Chart 1. Existing Land Use c 113 Pr CCD rn = ` 0 , C ET, ° m ro �C oo I�� o. IOio �W I 14;f CD 'III i��I Iy III „ IIIt I �' O' '--' W�I A oa W :N �7 tom: J ::1CD, _ I jNlti],� _ N00 N+]I LA'W iC' vl ryC:,OI es . oo J, W IA m i0G0 IC CID !� . oc i � O CID (^ IA fo I`t y^ � �� , I I^ W -- � 00 I lli N I N' N. j -a I •-- I !I I �'v, ��NIiO'[n ill ' ioo w v0 C�N!I^ I O. •- co I o Iwl iwl I ^I cc CNI~ N!. 00 OI C%I NQI ll11 i 171C �� ICI �°°I pI I I I I I I I Imo' 'is 'v c.nN wlA NO I � In w w ' O I t O OC G1 oa G1 00 I e c, CIO o. i b Co j I I lwif pip : Ito ` i cD I z '', I i �'' � ! N I N W N ^•Gl�lai W IUD I— `J II CO ' o I i I a n ca (D 8 N I Nf O e �II e e °off S o' e S m T O U P Manning Avenue b 9 m m C D c n � n � � a CIO -c U3 n c l m a m O -n -� y go b O 0 p 3 m x 'n m N O N W O x n m � A ", r _ rw O 3 ? T ➢ '-'� Cn A V A w N o. O w A V 4T .a. O N K) W A V 'a I Q z Z T 70 V m U co N --+ -+ — Cll w [A A] N A u, W V 4 W O O O U n 1 D -i O I �o .q h] V F-QO rn b 9 0 c n 0 r @ `-f L1 cn .g cro@ O h G r G G fn Cr'J 0 �o a y r z d l � y d a n tJ O n o c m �n an C G n C/I CL r v OO CN W W W Q ~ W �• C O � O a W W O 1 C1 �% t,J N W G1 G1 LA C, c w G o a �p +] CN A G1 Oa in n c� r-- .�• OO r V7 W b p O W N Lh r. G -- W 0 OO o o � 0 k-A W LA pO C% XA LA �,o O C O a o 0 y r z d l � y d a n tJ The City of Stillwater planning area contains 5,544 acres, 3,649 acres in the City of Stillwater and 1,895 acres outside Stillwater in the URTPA. The URTPA is generally the lands west of the current city boundary to CR 15, Manning Avenue as shown on proposal land use map. The existing land use Map A shows existing land use for the city and URTPA. Table 2 on the preceding page shows existing land use figures for the existing city and for the URTPA outside the city. Table 3 shows City of Stillwater land use by percentage as compared with a typical city Stillwater's size. Table 3 As can be seen from the table, Stillwater does not have a typical land use distribution. Stillwater has much less industrial and vacant land, twice as much public and community commercial lands, more residential and about the same street and road right of way. These land use proportions help define Stillwater's character. Stillwater has more than its share of public lands. This reflects Stillwater's role as the central city for the surrounding greater Stillwater area. The Washington County Government Center, area churches, schools, and city and school district offices are located in Stillwater. City neighborhood and community parks are also counted in this category. Stillwater has twice as much commercial land proportionately to the typical city. Stillwater has a strong tourist industry and is the retail center for market area. The streets and highways category is typical and the vacant land percentage, 8 percent is low compared to 25 percent for a typical city. As of .January 1995, ,there were 223 acres of vacant developable land within the City of Stillwater as shown in Table 4. 1995.. ;;. Percent Existing LandUse Typical Classification C 'Stillwater Industrial _ ib 61 74' Public (parks, churches, ; R Duplex Residential , -:- �, x.28 schools; civic,buildings) '., �z , �14. :, 28 . Comm"u,ni ty Co,_rn6rciai � 3., ._ :, 6 Residential °` '32 1,39 Vacant` 26 8 Streets &,Highways 19 w� ° "� 18 Total 100 -' " 100 As can be seen from the table, Stillwater does not have a typical land use distribution. Stillwater has much less industrial and vacant land, twice as much public and community commercial lands, more residential and about the same street and road right of way. These land use proportions help define Stillwater's character. Stillwater has more than its share of public lands. This reflects Stillwater's role as the central city for the surrounding greater Stillwater area. The Washington County Government Center, area churches, schools, and city and school district offices are located in Stillwater. City neighborhood and community parks are also counted in this category. Stillwater has twice as much commercial land proportionately to the typical city. Stillwater has a strong tourist industry and is the retail center for market area. The streets and highways category is typical and the vacant land percentage, 8 percent is low compared to 25 percent for a typical city. As of .January 1995, ,there were 223 acres of vacant developable land within the City of Stillwater as shown in Table 4. 1995.. .Table 4 Vacant Acreage by Zo6ing Classification Zoning Classification Acre Per °cent RA Single Family 74' 33 R Duplex Residential , -:- �, x.28 12.1 RCM Multifamily Mediums 28 , "`4.99 ;140 Density RCM Multifamily.. RCH Multifamily High Medium Density, Density 0 . 5- CBD - Central Business District 105 370 BP -C Business Park-.' _ Commercial ; 50 23 BP -1 Business Paris Industrial 60z. F 27 BP -O Business Park-Office , :73 y3 PAn Public Admintstratior� Office; A 1 0 ' This amount of land could accommodate 370 residential units at existing zoning densities as shown below. (Table 5). Residential Zonino Table 5 DUI A crea e AC : DU- % RA Single Family 74 - 2.88 RB Duplex Residential 28 , "`4.99 ;140 38 �= RCM Multifamily.. Medium Density, 3 5.63 20-- . 5- 105 370 100 To put this amount of vacant land and residential development capacity into perspective with recent residential development trends growth for the past 5 and 10 years and metropolitan council housing 10 acres in this zoning district is anticipated for a neighborhood park. 'The City of Stillwater owns 8 acres of land in this zone district for a new armory. 'The City of Stillwater o,,vns 7 acres of land in this zon3FL21 district for a community facility. unit forecast growth rates are shown. Residential Construction Table" 6 Period #DU's " " „t: ° " " DU'sNr 1985 - 1 994" (actual) 1189:­ - 119 1990 - 1994 (actual) : 752 : 150 1995 - 2000 forecast ;_ .: 11 - s`= 600 -- .- 100 Depending on growth rate Stillwater has 2.4 to 3.7 years of growth capacity remaining in the existing city boundary. It is unlikely that all vacant residential development sites will be developed so the number of years of development remaining is likely to be less then those described above. Urban Rural Transition Planning Area Growth The URTPA is comprised of 1,895 acres of land. Existing land use for the URTPA is shown below by land use category: URTPA Land Use Table 7 Land Use Category_` Acres % Re'' "sidential °`" "-. " "�:.686 `: � 36 Commercial Road ROW `` 76 4 Open Space/Lakes/Parks ` 326 17 Vacant "731 38 Other 69 4 1,895 100 Planning for City of Stillwater expansion into the URTPA began in the 1980 Comprehensive Plan. In that plan, TH 36 (south), CR 15, Manning Avenue (west), and TH 96, Dellwood Road (north) were described as the future growth area boundaries for the City of Stillwater. Policies in the current Stillwater City and Stillwater Township Comprehensive Plans recognize the future development of the planning area. Public facility improvements (roads, sewer and water) have been sized and constructed anticipating the future development of the area. Stillwater Township Comprehensive Flan Polices state: The Stillwater Township Comprehensive Plan recognizes the URTPA as the city growth area as indicated in the following policies. - "Concentrate urban residential, commercial and industrial land uses adjacent to the city where urban services can easily be provided." - "Require that urban areas be initially developed to include all services (sanitary sewer, public water, paved streets, etc.) with phased developments to coincide with the extension of urban services." - "Establish lot sizes and other development standards for transitional areas adjacent to the city in such a manner to easily permit resubdivision when urban services are extended." The township plan recognizes the URTPA as a rural -urban transition planning area_ City of Stillwater URTPA Policies The 1980 Stillwater Comprehensive Plan set the ground work for future planning, staged growth into the URTPA. Policies state: - "The city should consider an annexation plan that would gradually and in stages extend the city limits outward to eventually encompass an area bounded on the north by Highway No. 96, on the west by County Road #15 or Manning Avenue, on the south by Highway 212136." - "This would be sufficient land to accommodate a potential future population of between 20,000 and 25,000 persons which is the desire maximum population consistent with city growth and development policy." - "Annexation should be staged in accordance with logical extension of sanitary sewer service; this would call for annexation of land to the northwest (north of County State Aid Road No. 12) between 1979 and 1985 with land to the southwest (vicinity of Long Lake) to be annexed between 1985 and 1990, Growth should be staged in accordance with housing demand, logical and gradual extension of sanitary sewer and other city services and in accordance with the long -range capital improvement program and budget. A major concern should be to allow growth only at the rate compatible with the city's ability to properly finance the required public improvements and services." Both Stillwater Township and City of Stillwater Comprehensive Plans recognize the importance of the URTPA for future city growth. Development Potential There are 998 acres of vacant land in the City of Stillwater and the URTPA combined. Of that amount, 188 acres is designated commercial and 810 residential. Figure 8 shows the vacant commercial and residential acreage for the existing city and URTPA_ Vacant Land,.-.. Figure 8 Acres Res. Coin. In City of Stillwater 105 118 Outside Stillwater, (URTPA) 705 70 810 188 The additional residential units that could be built in the existing city and URTPA is shown below. (Figure 9) Residential Vacant Lands Figure 9 Hu s. New Housing Units 2010 v, Existing City URTPA Single Family 3,365 �u 1,909 a .. Large Lot 70 475 Small Lot 136 605 Attached 308 190 Multifamily 125 0 Total 639 1,270 3 -4 A total of 639 housing units could be built in the existing city and 1,270 units in the URTPA based on proposed land use. Population Increase , Figure 10 Hu s. Population 2010 v, Existing Clty 639 1,593 $ URTPA x'1.27© ,. 3,365 �u 1,909 a .. 5,058._..� .. . Figure 10 shows the population resulting from housing unit growth assuming an average of 2.65 persons per dwelling unit. (Metropolitan Council) Experience has shown that build out (every vacant acre of land fully built upon to the maximum allowed based on zoning) is unlikely, it is more likely 75 percent of the land will be utilized. At a 75 percent build out, 1,364 housing units would be constructed housing a population of 3,615 or a total Stillwater population of just under 19,052. A 100 percent build out would result in a 4,820 population increase and a Stillwater population of 20,269. Figure 11 computes city build out using past residential growth rates and met council growth rates applied to the current population base. Based on the available land, historical and forecast growth rates, lands within the URTPA expansion area could be filled in resulting in a total city population of 19,500 to 21,500. The city would be built out in 2010 (these figures do not include existing township residents). Source Figure l I Build Out Rates The population could be achieved as early as 2005 and as late as 2010+ depending on development phasing, market condition and actual residential construction rates. The proposed Land Use Plan, shows the areas of growth for the 1995 -2020 period. After 2010, most vacant residential lands will probably be developed. After 2020, redevelopment and infiil 1995 2000 2005 2010 1985 -94 residential construction 15,500 17,076 18,652 20,228 1990 -94 residential construction 15,500 17,487 19,474 21,461 I995 -2000 forecast (Met Council) 15,500 16,825 18,150 19,475 The population could be achieved as early as 2005 and as late as 2010+ depending on development phasing, market condition and actual residential construction rates. The proposed Land Use Plan, shows the areas of growth for the 1995 -2020 period. After 2010, most vacant residential lands will probably be developed. After 2020, redevelopment and infiil will be the primary type of new development. This plan does not contemplate future development beyond the TH 96, CR 15, TH 36 boundaries. See table below for maximum URTPA growth. ' "f- MazirriiimURTPA Growth 200'x.0 2005 2010 2020' C�' � i��` Hous�ng L1n+ts�City , �5,800_',6,47Q }A7,070 x:7,290 _ - „ 7,929 "` g ;:Township" _'240 220 "22(?` =' "� 0 ' 0 Population °.City - 15,50Q ;. ' 17,277 18,867 19,662 21,355 Township 750 750 750 0 0 Acres,"­ `_`City :° "" 3,676 "4,326 4,926 5,526 5,526 ', "Township 1,883 1,233 633 0 0 'Infil1 growth in existing 6hy1995 boundary added in 2020 figures, 639 HU's and 1,693 population. Objective Polices and Programs Since 1980 comprehensive plan adoption, Stillwater has set as a primary goal to maintain Stillwater as a separate and distinct community. A complementary goal is to establish a greenbelt around the ultimate Stillwater planning area to separate suburban and urban development from semi -rural and rural areas. The City of Stillwater will continue to work with Stillwater Township and Washington County to maintain compact urban centered development in Stillwater and to protect urban growth areas for future development and limit urban sprawl into rural areas. Stillwater's land use objectives are grouped under three headings: community size shape. separation/ buffering, land use and infrastructure. Community Size, Shape, Separation/Buffering Objectives Determine the desired growth rate and phase urban services to accommodate planned for growth to 2010 and 2020. Establish an open space environmental framework to separate urban from semi -rural areas, retain the loosely developed open space 3 -5 character of the URTPA edges and preserve natural resources. Promote the orderly, planned and harmonious development of Stillwater and its surroundings. Decide the ultimate city limits size to 2020. Policy 1. Maintain the open space separation between Stillwater and surrounding semi -rural township areas with zoning regulation, open space dedication, development design review and land purchase as appropriate. Policy 2. Establish a permanent greenbelt around the city planning area. Policy 3. Screen views from Dellwood Road, Manning Avenue, Myrtle Street McKusick Road, Boutwell Avenue and TH 36 of developed area using existing vegetation and land forms, new landscaping, wetlands and greenways. Policy 4. Discourage urban sprawl outside the planning ultimate planning area. Policy 5. Use wetlands, woodlands, windbreaks and sloped areas to form a natural framework and help define new development. Policy 6. Coordinate the planning and phasing of new development of the URTPA with Stillwater Township. Policy 7. Use the land use intensities of the land use plan as a bases for actual new development. Policy 8. The city strongly supports measures to preserve natural resources and open space areas and maintain the areas unique natural and historic character. Policy 9. Support infll multifamily residential development in locations accessible to public transportation and community services and facilities. Policy 10. Continue to actively participate in the development update and implementation of the comprehensive plans for Washington County and Stillwater Township, Policy 11. Establish development staging for the URTPA and coordinate with annexations and MUSA expansion. Policy 12. Maintain any areas outside the city within the URTPA for future possible urban development for the 2020 planning period. Program (1) Establish annexation and municipal urban service area boundaries consistent with the comprehensive plan. Program (2) Encourage use of the innovative development concepts, where appropriate, such as mixed use development and cluster housing to provide life cycle housing opportunities, minimize the need for and use of the automobile, protect natural resources and maintain open space. Program (3) Develop an overall planting plan for the greenbelt buffer that defines and separates the City of Stillwater from Stillwater and Grant Townships. Program (4) Monitor yearly development and development impacts to see that what occurs is as anticipated or determine changes are needed in land use plan policy to achieve plan goals. Program (5) Explore the "transfer of development rights" concept with Stillwater Township to help preserve rural character on the edge of the city and in areas outside the City of Stillwater. Program (6) Prepare specific area plans, use the planned unit development process and development design guidelines to recognize and preserve existing natural resources and provide for future development. Program (7) Encourage Stillwater Township to use the cluster development concept to preserve natural resources, maintain agricultural lands and generally maintain a rural character. Land Use Objectives Designate lands appropriately located for a range of residential uses, neighborhood, commercial, light industrial, parks and open space on the land use map. Designate natural resource and environmental constraint areas for preservation of the natural resources and protection of public health. Nonresidential land use such as neighborhood commercial and schools shall be buffered from all adjacent residential uses, connected by trails to residential areas and appear subdued in a landscaped setting as viewed from the public roads. identify and preserve cultural resources and unique land forms in growth areas to maintain elements of the areas past and to provide an 3 -6 identity for new development. Provide for a range of new housing opportunities from large lot single family to multifamily. Program (1) Implement the land use plan by zoning lands consistent with the land use plan designations. Program (2) Revise subdivision ordinance and park dedication policy to obtain parks, preserve natural areas, provide trails and implement special comprehensive plan and special area design guidelines. Program (3) Support the open space committee in identifying critical open space resources and the development of a mechanism to obtain selected open space lands. Program (4) Require planned unit developments or specific area plans to coordinate parks and trail development, traffic systems, buffering and application of design guidelines. Program (5) Require a detailed environmental assessment as a part of the new development and design review process for URTPA projects. Program (6) Use innovative approaches such as development agreements, orderly annexations agreements and joint planning as appropriate to implement land use policy Infrastructure Objectives Coordinate the provision of roads, water, sewer and storm drainage systems, community parks and trails with existing facilities and new development phasing. Require that new development pay for their share of parks, trails and infrastructure improvements. Maintain high - quality public facilities to accommodate existing city needs and for new development areas. Phase public improvement expansion to minimize the city's financial risk and accommodate development. Program (7) Develop a capital improvements program that anticipated growth according to the comprehensive plan. Program (8) Review city assessment policy to ensure that new development pay or provide public facilities required to service the development and the impact of new development on the city is minimized. Program (9) Explore methods of reducing the financial impact on annexed township residents who do not need or want city utility services at this time. Two methods are: use of rural taxing district and public utility assessment policy. Land Use Map The proposed land use map shows land use to the year 2020. The proposed land uses adopted in the plan to a large extent echo existing land use or are extensions of existing patterns. In 1988, a specific area plan for the downtown was adopted and in 1989 the West Business Park Plan was approved. Both plans provide specific land use direction the subject areas. Only a few notable land use changes have been proposed to exiting areas of the city. Those changes are described under the section titled Existing City Land Use Changes. Land use for the URTPA is shown on the proposed land use map and described in the URTPA Land Use section. Definition of Land Use Categories Listed below are land use plan categories, boundaries and definitions. For residential uses, the designations shown are maximum densities. For commercial and office park areas, the use describes the activities intended for the district. Semi -Rural Residential: An average of up to one dwelling unit per 2.5 acres. Very low intensity residential development that does not need city services. (This density is consistent with existing township development density.) Single Family Large Lot: Up to two dwelling units per acre (net). This designation applies to areas in the URTPA away from the existing city boundaries where natural resources or environmental constraints dictate a lower density. This density is less than Oak Glen density. Single Family Small Lot: Up to four dwelling units per acre (net). This is Stillwater's older typical residential density similar to residential 3 -7 areas developed before 1950. Single Family Attached: Up to 6 dwelling units per acre (net). This is the density found in recent townhouse developments in Oak Glen and along County Road 5. Multifamily Residential: Up to 15 dwelling units per acre (net). This designation is intended primarily for multifamily projects for three or more dwelling units on the same site. These sites are located on transit lines and in mixed use areas where city services are available. Neighborhood Commercial: Commercial uses that cater to the immediate residential area surrounding the activity. They are usually located at intersections of collector or arterial streets. The uses are a convenience to the adjacent areas and not for community -wide use. The areas are small 5 acres or less with wide setback buffer areas in developing areas to screen the use and minimize the impact on adjacent residential areas. Community Commercial: Large shopping areas and the city's central business district (downtown) that provide a range of goods and services not available in neighborhood shopping areas. Community Commercial areas shown on the land use map are located downtown and the West Stillwater Business Park. Business Park: Land use contained in the West Business Park Plan including office, commercial and industrial subdistricts. Research and Development Office Park: Light industrial and office use housed in a compact business park campus setting with an overall development concept. Commercial uses other than office are allowed only to the extent that they offer goods for employees of the office park. Wetlands, Lakes and Tributaries: Water bodies that meet the definition of wetland contained in the Minnesota Wetlands Preservation Act. Parks and Open Space: Parks are designated neighborhood, community, elementary school sites. Neighborhood and community parks are owned by the city, schools by the school district. Marinas and golf courses are private or semi - privately owned and designated on the land use map. Open Space: Are lands primarily publicly owned or controlled that may in the future become parks but are currently held for open space purposes. Special Area Plans: Areas where special specific area plans are required to be prepared to address specific development guidelines contained in the comprehensive plan. Guidelines cover the areas of site design, road system, buffering, parks, trails, open space preservation and natural resource protection_ (See special area plan map, Section 13.0) City Boundary: A parcel specific boundary located to mark the outer edge of where urban development requiring urban sewer and water service may occur for the 25 year to 2020 planning period. Floodway: Channel of river or other water course and the adjacent land area that must be reserved in order to discharge the base flood without cumulatively increasing the water surface elevation more then one foot as defined by the Corp of Engineers (overlay district). Bluffland /Shoreland: The riverway boundary contained in the official copy of the Lower St. Croix Natural and Scenic Riverway Master Plan (overlay district). Changes to Existing City Land Use Changes Proposed land uses in the city are similar to existing land use with some exception for infill residential development. The proposed land use plan for the existing city show new multifamily sites in the downtown over the city parking lots at Olive and Second Streets and Mulberry and Second. These sites could accommodate 100 - 150 multifamily apartment type housing units. 3 -8 Both sites are particularly appropriate for senior housing. Both sites are served by transit and within walking distance of community services and facilities. Other site may be appropriate in the downtown. Sites for attached single family housing are shown along CR 5 and just west of Oak Glen on the south side of McKusick Road. Other changes on the proposed land use map for the existing city recognize exiting land use conditions and adjust proposed land use to those conditions. Areas changed include the Lakeside Drive area from duplex residential to single family residential, Greeley Street area from small lot residential to large lot single family, Greeley at West Orleans from single family to multifamily residential. The proposed land use plan designates existing commercial areas located in residential area neighborhood commercial because of the size of the commercial area, services provided, nature of development and location of the use. The Churchill /Fourth Street and Owens/Wilkins Street areas are designated neighborhood commercial. The riverfront area running from the Lakeside Drive residential area on the north to Sunnyside Marina on the south is designated open space as is city -owned Kolliner Park located in Wisconsin. This designation allows marinas and open space and park uses. The proposed land use map shows the area immediately west of County Road 5 as attached /townhouse single family and large lot single family consistent with existing large lot development pattern along Nightengale Avenue and 62nd Street North. Lands directly north of TH36 are designated research and development business park. The intent is to establish a high design quality labor intensive business park providing basic employment for the greater Stillwater market area. Located north of 62nd Street is a combination of single large lot and single family smaller lot development. Areas of environmental sensitivity are designated large lot (boarding Long Lake) and areas closer to roadways or on less descriptive land are designated small lot single family (just south of County Road 12 and north of 62nd Street). The proposed land use plan recognized the existing semi -rural development pattern and character of the lands north of County Road 12 and south of Boutwell and maintains those areas in their current land use with the exception of a 15 acres parcel just west of the township park lands. That site is designated single family attachedltown house. North of Boutwell, an area bounded by tributaries of Brown's Creek is designated small lot single family. The development would be buffered and partially hidden from public view. A site separated from the single family area and Brown's Creek is designated single family attachedltown house. Access to this site is provided off of McKusick Road. A northern area with access from Neal Avenue is designated a mix of residential uses; single family large lot, small lot and attached/town house. The area. includes neighborhood parks with special setbacks and trails along Brown's Creek . All residential development areas would include neighborhood parks, access trails or sidewalks and special setbacks, special wetland setbacks and buffer areas adjacent wetlands and major roads. The land use plan along with comprehensive plan policy provide direction for future growth, development and preservation. Other sections of the plan including natural resources, economic development, parks, housing and transportation detail and provide more specific direction for land use map designations and policies. The following planning concepts from the Stillwater City and Township Joint Planning Task 3-9 Force Guideposts provide direction for URTPA land uses. The concepts are used to designate land use and provide direction for specific area planning. GreenwayslOpen Space Definition Greenway buffers shall be established along Manning Ave, Dellwood Road, Myrtle Street, McKusick Road and Boutwell Drive. The greenways shall be 100 - 200 feet in width depending on the location and site conditions. The purpose of the greenway is primarily to preserve the natural semi -rural appearance of the URTPA by site and screening new development from major public roads. -rhe greenway shall appear informal and natural using native indigenous plant material adapted to existing topographic conditions. Enhancement of existing topographic or vegetative conditions is encouraged to the extent the enhancement appears natural. Wetland mitigation sites may be used as part of the greenway. Pathways may be located along side or in the greenway but not appear as a primary design element of the greenway. The green way will provide a landscape separation between newly developing residential areas and high volume traffic corridors. Trailways, Parks and Open Space Areas Trailways, neighborhood and community park and open space areas will be provided throughout the URTPA. The extensive Brown's Creek Wetland systems shall provide the framework for park and open space resources preservation in the north portion of the URTPA area (North of Boutwell). Long Lake and existing woodlands and windbreaks shall be used in the southern portion of the site for trail locations screening and buffering. An overall system of trails connecting new neighborhoods from Dellwood Road to 62nd Streets shall be planned along wetlands, natural drainage ways and wooded areas. Within neighborhoods pathways shall conveniently connect residents to neighborhood park school sites and open space areas separated from auto traffic. Any community park, convenience Newly developed areas shall be large lot ( I to 2 dwelling units per acres DU /Acre), small lot (2 to 4 DU /Acre) or higher density attached housing at 4 - 6 DU /Acre. Larae, lot single family_ areas are located in sensitive sites areas. Because of topography, wetlands, lakes or timberland conditions the amount of site disruption is limited. These areas tend to be located on steeply sloped or wooded shorelands or adjacent to sensitive wetlands or open space areas. A cluster development concept could work in these area to minimize the impact on the land. Small lot single family areas tend to be in areas that are less environmentally sensitive and more secluded. These sites can be interior to the large lot area or setback form open space areas. These sites are the flatter corn or hay fields of the URTPA. The development density of the small lot area is typical of the existing city. Attached or compact housing areas are located in pockets separated visually and physically from single family areas. These locations have good direct access to major roads and are more closely tied to existing urbanized areas. Sites for compact housing are located on County Road 5, Myrtle Street south and west of Long Lake, possibly McKusick Road (east and west of mitigation site) and a site south of Dellwood Blvd. Convenience Commercial Locations. The purpose of this use is to provide services and products forthe surrounding residential areas and to reduce auto traffic. The sites should be buffered, but clearly connected by pathways to adjacent residential areas, be of a residential scale and style compatible with the adjacent residential areas. Office park or research and development areas. These locations provide a job base for the Stillwater areas and tax base for the community. These sites should have convenient access to major roads, be visually and physically separated from residential areas, be attractively designed 3 -10 and landscaped to fit into the site conditions. .'Y 4� fir; -!, 'See responsible agency list. 'See implementation project/action list. 3 -1. 1 Policy Program Section /Subsection No. No. Responsible' ProgramlAction2 3.0 Land Use 1 CPC, CDD 3, 4, 8, 10 2 CPC, CDD 10 3 CPC, CDD 2,10 4 CPC, CDD, ST, WCMC 2,10 5 CPC, CDD 2,8 6 CPC, CDD, ST 24, 11, 12 7 CPC, CDD 3, 4, 8 8 CPC, CDD 2, 4, 8 g CPC, CDD 3 10 CC, CPC, CDD 24 11 CC, CPC, CDD 11,12 12 CPC, CDD 24 1 CC, CPC, CDD 11,12 2 CPC, CDD 2,8 3 CPC, CDD 10 4 CC, CPC, CDD 13 5 CPC, CDD, ST 24 6 CPC, CDD 2,8 7 CPC, CDD, ST 24 Land Use 1 CPC, CDD 3 2 PB, CPC, CDD 14,4 3 CC, CPC, CDD 24 4 CPC, CDD 15, 2, 4, 8 5 CPC, CDD 16 6 CC, CPC, CDD 24 Infrastructure 7 CC, CPC, CDD, PW 17 8 CDD, FD 24 9 CC, CPC, CDD, FD 18 'See responsible agency list. 'See implementation project/action list. 3 -1. 1 City of Stillwater Comprehensive Plan December 12, 1995 Transportation Planning The existing transportation system is closely linked to historical development patterns of the city. Land use planning and transportation planning should be carried out at the same time so that the road systems are designed to accommodate the number and type of trips generated from development. This was not done when the original city was laid out. Problems arise when the road system can not handle the travel demands being placed on them_ Stillwater has an existing road network that carries a varying numbers of vehicles for different reasons. A purpose of this plan is to recognize and correct, to the extent possible, conflicts between land use and traffic and plan for future needs based on local and regional demand. Transportation Goals Goal 1. Make it easy and convenient to travel in and around Stillwater, tie allowable new development to the capacity of roadways; prevent intrusion of non - residential traffic in neighborhoods when possible and develop a comprehensive sidewalk, trail and bikeway system. Goals 2. Develop a coordinated transportation system that provides for local as well as area -wide traffic. Goal 3. Provide efficient and environmentally sound transportation facilities consisting of roads, bikeways, transit lines and pedestrian paths. Goal 4. Support construction of the new interstate bridge and TH 36 corridor improvements to provide for regional traffic demands and to relieve cut through traffic on residential areas. Goal 5. Develop and locate new roads sensitive 4 -1 to historic structures and sites and natural features. Goal 6. Protect residential areas from non- residential traffic. Street Functional Classification The Stillwater road system can be defined in terms of a functional hierarchy that takes into account the type of trip being made and the roadways relationship to the adjacent land uses. The functional classification for Stillwater roads are mapped and described below: Principal arterials are major roadways such as Interstate 94 or TH 36. The primary function of these roads is to provide through movement of regional traffic. Minor Arterials connect cities and towns to rural areas and other cities and towns. TH 95 and 96 fit this category. Collectors are streets that connect neighborhoods or a neighborhood to a business district. Many of the business streets in Stillwater are collectors. Collector streets include South Third and Fourth Streets, Chestnut, Myrtle (County 12), Greeley, Owens Olive (County 5) Pine, Olive and McKusick (CR 64). According to resident opinion surveys, traffic on residential collector streets is a primary neighborhood concern because the traffic is in conflict with neighborhood residential qualities. The Metropolitan Council has classifications of principal arterials and "A" minor arterials, based on metropolitan -wide review "A ". Minor arterials are further classified as augmenter, reliever, expander and connector. In the Stillwater area, the following roadways are classified: 3 0 rn z C Z n O z Ar (-FSS Fl)NrTION n q o o n n Decreosing dogree Tb a of access canlrol oT o r� r � n' °e h a a n m G O a a. a` o fb o o ; h �•5 N � C 4 p � o O O n co co 0 --r /rcreasing use of srrcel /or cccess purposes : U17reSfr :060' porkirg, loading, erc. occess x 1 co N P -c C� G o- c� kr � a o t' C-% 0 O � Ca P O_ 0 P Principal Arterial: Truck Highway 36 "A" Minor Arterial: County Road 15 Truck Highway 95 Truck Highway 96 "A" Minor Arterial - Expander: County Road 12 (Myrtle Street ) from Owens Street west. County Road 5 (Owens Street, Olive Street, Stillwater Road). County Road 23 (Third Street, Orleans Street, Fourth Avenue, Beach Road). County Road 67 (Fourth Street, Orleans Street). County Road 66 (Greeley Street from Lily Lake south). Local streets primarily provide access to residences. Local streets connect to collector and minor arterials for movement through an area. The graph on the following page shows the relations between traffic movement, function and access to property for each classification of street. Access will be restricted on higher classifications consistent with Washington County and Metropolitan Council guidelines. Each street classification also has different physical characteristics (i.e., right of way width, speed limit and carrying capacity). The table below describes those capacities and characters: Street Characteristics Row Speed Vehicles Carried 1,000s Principal Arterial 300 ft 45 -55 15 -100 ADT' Minor Arterial 100 -300 ft 40 -50 5 -30 ADT Collector 60 -150 ft 30 -45 1 -15 ADT 4 -2 Local Streets 50 -80 ft 30 max. <2 ADT 'Average Daily Traffic Existing 1992 traffic volumes measured in Average Daily Traffic on major Stillwater streets are shown on the Traffic Volume Map. Examples of the street classifications in Stillwater and 1992 traffic volumes include: Principal Arterial - Highway 36 at Washington Ave - 25,000 ADT - Highway 36 bridge at St. Croix River - 15,000 ADT - Main Street south of Nelson Street - 16,500 ADT Minor Arterial - Chestnut Street west of Main Street - 5100 ADT - Fourth Street south of Orleans Street - 7500 ADT - Third Street south of Chestnut Street - 6400 ADT - Osgood Avenue north of Highway 36- 10,000 ADT - Greeley Street north of Highway 36 - 9500 ADT - Olive Street west of Owens Street - 7100 ADT - Owens Street north of Myrtle Street - 9800 ADT - Myrtle Street west of Owens Street - 5600 ADT - County Road 5 north of Orleans Street - 10,000 ADT - McKusick Road at Oak Glen - 1300 ADT Collector - Pine Street - 3500 ADT The traffic volumes currently fall within the ADT range for classifications in the above table. However, congestion does occur, due to daily and seasonal traffic volume fluctuation. Much of the congestion within Stillwater is directly related to the St. Croix River bridge location in the downtown. The construction of the new river bridge will significantly change traffic patterns and reduce congestion levels. Much of this is documented in MnDOT studies and analyses. l�(yyater ,Wiwi U aHUHujitwi -I11iff 4200 �l Jt R MCKUSICK RD. 7000 pon" = �>I _4 G Li �.I 125"0 • ,AN fit li lq 1 i COMPREHENSIVE PLAN MA 1I111N iliirrrlrrr»r +r1lrlrrrrrr 9r6rrrriiliia�� 4000 - MW'* " i A-) 3500 6600 " �} 630c —, h i # c,ax r F 0,500 SAM05B"- jH -1995, Insight Mapptag & Demognphlcs, In[. 25,500 L-11 A HW-Y 36 9600, 21.,500 ROB ASSIFICATIONS - DAILY TRIP TRAFFIC COUNTS Est, 1992 ADT (Est. DAILY TRIPS) =on PRINCIPAL ARTERIAL IIIII11111 MINOR ARTERIAL ('A' MINOR ARTERIAL -CONNECTOR) COLLECTORS ( "A" MINOR ARTERIAL - EXPANDER) . r f JL r7o0o.v ,t (NN, ! ' 1' = 2.500' it 80000 \ ~, IIl9195 X15,000 1 6,5oir. ; X20,000 1 9600, 21.,500 ROB ASSIFICATIONS - DAILY TRIP TRAFFIC COUNTS Est, 1992 ADT (Est. DAILY TRIPS) =on PRINCIPAL ARTERIAL IIIII11111 MINOR ARTERIAL ('A' MINOR ARTERIAL -CONNECTOR) COLLECTORS ( "A" MINOR ARTERIAL - EXPANDER) Stillwater's Roadway System The City of Stillwater has a number of major roads and streets that make up the backbone road system. These roads are under the jurisdiction of the Minnesota Department of Transportation (MnDOT), Washington County or the City of Stillwater. Coordination of transportation planning between MnDOT, Washington County and the City of Stillwater is critical to the successful operation of the road system. A number of traffic studies have affected the Stillwater Transportation Plan. MnDOT has provided detailed traffic analyses and forecasts (year 2017) in conjunction with the new river crossing. Stillwater, Oak Park Heights, Washington County and MnDOT cooperated on a sturdy and forecast of traffic along TH 36 and the frontage roads. Washington County is currently completing a comprehensive plan and has forecasted traffic as part of the plan. The City of Stillwater has forecasted traffic from several developments as part of the analysis of the development plan. The traffic volume forecasts in this plan are based on the several sources and reconciled with each other. Highway 36 serves as a metropolitan area principal arterial carrying traffic into and through the metropolitan area. It provides a St. Croix River crossing and is one of only three connections to Wisconsin from the metropolitan area (others are at Prescott and Hudson). For Stillwater planning purposes TH 36 can be divided into three segments: the St. Croix River crossing and the TH 95 interchange, the section from TH 95 to TH 5, and the section from TH 5 west to CR 15 and Interstate 694 beyond. The need for a new river crossing has been clearly identified in many planning documents and studies. The TH 36 bridge has the third highest rating for new bridge construction in the Metropolitan Council River Crossing Study. This transportation plan is based on the assumption that the bridge will be constructed in the planning 4 -3 period. Bridge plans are now being prepared and the bridge is currently scheduled to begin construction in 1997 and be completed by 2000. The new bridge will replace the existing route through the downtown. The existing route experiences major congestion because of conflicts with local traffic, pedestrians and narrow streets. It is anticipated by MnDOT that a new river crossing bridge would carry a volume of 28,000 ADT by the year 2017. This is compared to a 1992 volume of 15,000 ADT on the existing bridge. Even with the new bridge, the existing lift bridge is projected to carry 12,000 ADTs by the year 2017. These volumes show the significant amount of projected future interstate traffic in the Stillwater area. TH 36 from the TH 95 interchange to TH 5 is currently relatively congested in peak hours and carries a heavy volume of both local and through traffic. Current traffic volume is 25,500 ADT west of Washington Avenue. Mn /DOT forecasts a volume of over 62,000 ADT by 2017. Mn /DOT anticipates that the three existing signalized intersections at Osgood Avenue, Greeley Street and Washington Avenue will remain in place for the foreseeable future. There is concern that with the high traffic volume, TH 36 will eventually become congested resulting in traffic again using residential collector and local streets. TH 36 from TH 5 to CR 15 and beyond the planning area was recently studied by Mn /DOT, Washington County and communities in a TH 36 access study. The goal was to identify major highway access points from Stillwater to Maplewood. Based on the study, MnDOT is committed to future full interchanges on TH 36 at TH 5 and at CR 15. In the interim, Mn /DOT and Washington County have installed a traffic signal at the CR 15 intersection. County Road 15 (Mannino venue), a minor arterial, is the second major roadway serving the Stillwater area. The road is shown as a new Washington Parkway in the Washington County Comprehensive Plan. A new CR 15 road segment between TH 36 and TH 5 is planned to be constructed to provide a major north -south through route from Forest Lake to TH 61 just north of Hastings. CR 15 also collects local traffic and distributes it to major east -west routes. As an example, traffic may enter CR 15 at TH 96 and travel only a few miles south until exiting to go west or east on TH 36. Other traffic might utilize CR 15 between TH 5 or Interstate 94. It is likely that in the future there will be more north -south regional traffic using CR 15 as compared to existing routes closer to the metropolitan area. Because of the volumes and the nature of traffic, access to CR 15 will be limited. It is anticipated that there will be traffic signals at CR 15 at County Road 12 and at Highway 96. Another signalized access points may be McKusick Road depending on need according to the Washington County transportation plan. Highway 95 is also classified minor arterial. It is a north -south route following the St. Croix River. It serves primarily as a route for local or area traffic and some through traffic, primarily of recreational nature. Future volumes range from 8,500 ADT north of TH 96 to 17,000 ADT north of Myrtle Street and 35,000 ADT north of the new bridge. Primary restraints to traffic exist in the downtown and in the future at the new TH 36 bridge interchange. County Road 5 (Stillwater Avenue) is classified a minor arterial. It is a continuation of TH 5 south of Highway 36. TH 5 provides connections to Lake Elmo, CR 15 to the south, and Interstate 694. CR 5 serves local major attractions such as the Stillwater Marketplace and the Croixwood residential neighborhood. The major problem with the CR 5 route is the lack of a direct connection through Stillwater to areas north of Stillwater. Currently, CR 5 becomes a city street using Olive Street and Owens Street to connect to areas north 4 -4 of Stillwater. Estimated future traffic volumes are 9,000 ADT's on the Olive Street segment, 12,000 north of Croixwood and 17,000 south of Curve Crest Boulevard, County Road 12 (Myrtle Street) is classified as a collector street running from the downtown west through Stillwater to the URTPA and Grant Township. CR 12 is a main east -west connection from Stillwater serving as an alternate to TH 36. It also serves to provide access from CR 15 to Stillwater. The use of and flow of traffic on the roadway is hampered by the lack of a good north - south connection to CR 12 in Stillwater. Other collectors of importance are Greeley Street from TH 36 north to Myrtle Street, Owens Street from Olive Street north to TH 96 and McKusick Road from Owens Street to CR 15. These three routes serve varying volumes of traffic. Greeley Street serves a high volume in the TH 36 area as a major connection between the Stillwater residential areas and the West Stillwater Business Park. Owens Street serves as a major outlet from the central Stillwater area to the north. McKusick Road is more of a local collector street but is one of the few connections to the Oak Glen development and the developing URTPA. System Restraints A major traffic restraint in the west Stillwater residential area of Croixwood and Oak Glen, is the lack of north -south through access. Planning for the Croixwood neighborhood deliberately omitted a north -south collector street, instead focusing on connections to CR 5. The two connections to CR 12 provide indirect connections through residential neighborhoods back to CR 5. Brick Street served as the main connection between CR 12 and CR 5. The subsequent development of the Deerpath residential area resulted in Deerpath being used as a cut - through route. North of CR 12, there is a lack of north -south street continuity because of McKusick Lake, Browns Creek, and the existing development patterns. The new Neal Avenue bridge over Browns Creek provides continuity for a portion of the area between Highway 96 and Boutwell Road but that continuity ends there. Boutwell Road and CR 12 is a difficult intersection because of intersection design and location. East -west routes are primarily CR 12 and McKusick Road. Both of these roads connect to Owens Street. Traffic using McKusick Road will probably use Owens Street to CR 12 (Myrtle Street) which will experience additional congestion in the future as the area develops. The URTPA growth area analysis addresses these system restraints. Overview of Traffic Problems In the past ten years, Stillwater has experienced an increase in traffic not only on major arterial streets but on residential collector and local streets as well. This increase in traffic is a result of a number of factors. Passenger car registration in Washington County increased from 60,500 in 1980 to 95,150 in 1993, a 57 percent increase. New development has occurred in Stillwater and surrounding areas adding trips to the street network. The existing river crossing and access to that crossing is congested at times. An increasing number of vehicles are using Stillwater's collector street system to provide a faster way to get through Stillwater to the bridge or to bypass the downtown area. The existing streets in the older sections of Stillwater (Greeley Street, Myrtle Street, Pine Street, Fourth Street and Third Street) were built prior to the 1950's. Many of the streets were not designed to carry the traffic they are now carrying but do because of location or lack of alternative. The following is list of transportation system problems identified during the comprehensive planning process. Problem Areas include: Road .451, capacity, congested intersections, offset streets, intersection design, cut through traffic, road alignment and safety concerns. Road Caaacity - Greeley Street from TH 36 to Myrtle Street - Myrtle Street from Main Street to Eagle Ridge Trail - Osgood Avenue /Fourth Street from TH 36 to Churchill Street - Owens Street from Olive Street to Stone Bridge Trail - Main Street - Pine Street from Third Street to County Road 5 Congested Intersections - Olive Street and Owens Street - Olive Street and Greeley Street - Owens Street and Myrtle Street - Greeley Street and Myrtle Street - Greeley Street and Churchill Street - Chestnut Street and Main Street - Pine Street and Greeley Street - Orleans Street and Fourth Street Offset Street Segments - Northbound Fourth Avenue to Burlington to Third Street - Greeley Street to Myrtle Street to Owens Street - Greeley Street to Olive Street to Owens Street Intersection Design - Greeley Street and Churchill Street - Greeley Street and Pine Street - Greeley Street and Myrtle Street - Myrtle Street and Owens Street - Owens Street and McKusick Road Residential Area Cut - through Traffic - Northland Avenue - Brick Street - Deerpath - Maryknoll Drive - Parkwood Lane - 72nd Street North - 62nd Street North Road Alignment - Stonebridge Trail and Highway 96 - CR 5 and TH 36 overpass - TH 36 Frontage Road (no east/west continuity from CR 15 to TH 95.) - Boutwell Road and County Road 12 Safety Concerns - Highway 5 and TH 36 (1997 MnDOT Project) - Boutwell and CR 12 4 -6 - Main Street and Chestnut Street - 72nd Street North and CR 15 URTPA Growth and Traffic Impacts The land use plan contains three development concepts. The land use plan has been reviewed for its impact on the existing street system and need for new streets. Palmer property (a part of Twin Lake Special Plan Area, see Section 13) - The northern -most concept plan, just south of TH 96, has limited access to the east and south because of South Twin Lake and Brown's Creek and the existing development. The proposal shows a new collector street to connect Neal Avenue to CR 15 approximately 700 feet south of TH 96. The only other access shown is to Neal Avenue or a loop back to TH 96 west of South Twin Lake. A major concern is the close spacing between the proposed east -west collector and the intersection of CR 151TH 96. Abromovich property (a part of Boutwell Special Plan Area, see Section 13) - The second concept plan area is located just south of McKusick Road and north Boutwell Road. Access is provided to Boutwell Road and across the Minnesota Transportation Museum railroad tracks to McKusick Road. Utilizing these connections, all development traffic can be centered on two existing intersections on CR 15. Kroening - Staloch properties (a part of Long Lake Special Plan Area, see Section 13) - The third concept plan area is located south of CR 12 and north of 62nd Street North. The concept plan shows limited access to CR 15. The existing 72nd Street connection is closed and traffic re- routed to a new intersections along CR 12 and CR 15. With proper design and location, the single CR 12 access should be adequate. Major access to CR . 15 is almost Y2 mile south of CR 12. With the exception of existing driveways to private homes and the proposed commercial corner, CR 15 would have controlled access along its east side through this development area. Large lot development on the Grant Township side of CR 15 would limit the number of driveways and potentially permit combining driveways to a single access point. The lower portion of area three is on the west side of Long Lake north of 62nd Street North. Again, options exists to restrict direct access by providing an internal circulation system with access to perimeter roads only at one or two locations. The proposed development shows connections to 62nd Street North and to CR 15 and a second connection near the north end of the development area. An overall circulation plan should be prepared for area three to coordinate the overall street system and control access to CR 15 and 12. Access at the south end of the development area is dictated by the adjacent research and development use proposed for the area immediately north of TH 36. Access to this R and D office park should not be through an existing or proposed residential area. The extension of Curve Crest Boulevard west from CR 5 continuing along CR 5 and TH 36 as a frontage road would best serve the research and development area. However, the west connection could create a problem unless it is utilized as a frontage road and tied into the TH 36 -CR 15 interchange signal system. Three options exist for road access to CR 15. Existing 62nd Street North could be connected directly to the proposed residential development on the west side of Long Lake. Either a cul -de- sac or some type of circuitous routing in an east - west direction could provide access to the existing homes but restrict through traffic. An access from both residential areas to the frontage road and research and development area could be made if it were circuitous and unlikely to attract cut - through traffic. This could occur if the existing 62nd Street North location were utilized, and a frontage road developed to curve to the south and 4 -7 along TH 36. A connection back north to existing 62nd Street and into the residential area could provide an indirect route for through- traffic and yet be convenient for the residential traffic. A second access into the area could be provided approximately halfway between the frontage road connection and the new connection into the development area three. This connection should provide access to the Apple Orchard area. The alternative road alignments and access points for the URTPA are shown on the following map. With the forecasted traffic volumes, it is anticipated that CR 15 will become a four -lane divided facility with a median and limited median cross - overs. By spacing the development access, cross -overs can be established at the proper locations to serve development areas. Access to the east toward Stillwater from the developments is a concern. The northerly developments will utilize either McKusick Road, Boutwell Road or Neal Avenue. These routes will provide access to CR 12 or Owens Street. A major concern is the lack of direct access to the Market Place and West Business Park area. A secondary concern is the potential congestion at the intersections of Owens Street, Greeley Street, Myrtle Street and Olive Street. Two separate studies are being conducted to address these issues. The Deerpath connection study is underway. It is attempting to identify alternates to reduce Deerpath traffic volume and still provide some movement between the area north of CR 12 and the West Business Park area. The second proposed study will review traffic operations, traffic controls and street design at the four intersections in the Greeley /Owens /Myrtle /Olive corridor. This study would be a cooperative effort between the City and Washington County. The extension of Neal Avenue from Boutwell to CR 12 is an option but raises concerns. The extension of Neal Avenue from TH 96 to CR 12 would provide an alternate access and a better intersection location than the existing Boutwell j�jWater COMPREHENSIVE PLAN Mnr a x r COUNTY ROAD 15 TH 36 FRONTAGE ROAD ACCESS PLAN Road location. It could also reduce traffic along McKusick Road. A major concern is the immediate access from Neal Avenue into the Croixwood development via Northland Avenue_ Options are to offset Neal Avenue east from Northland Avenue, provide a different connection between Boutwell Road and CR 12, or continue to terminate Neal Avenue at Boutwell Road and use Boutwell Road for access to the south. Traffic volumes using generalized development densities, trip generation and distribution was calculated for each of the three concept plan areas. Based on this analysis, none of the intersections onto CR 15 or the local streets receive a significantly high volume of traffic. The additional residential growth adds approximately 1,200 vehicles per day to McKusick Road east of CR 15 with most traffic going to or from the south. Volume increases on Boutwell Road east of CR 15 was approximately 2,150 vehicles per day with over 1,800 travelling to and from the south. The first major access point south of CR 12 had a volume of approximately 2,500 with over 80% travelling to and from the south. The second access point had a volume of approximately 1,800 with approximately 1,600 travelling to and from the south. Even the research and development area adds only approximately 2,400 trips per day to the TH 36 frontage road at the CR 15 intersection_ Traffic to the east included approximately 160 on McKusick Road, 1,150 on Boutwell Road and 1,800 on the TH 36 frontage road. Total additional traffic volume on CR 15 north of CR 12 was less than 2,900 vehicles per day and the additional traffic volume on CR 15 north of TH 36 was approximately 6,500 vehicles per day. With planned improvements to CR 15 and TH 36 and sound development road design additional traffic resulting from the development concept areas can be accommodated in the existing and planned road system. Washington County Road Improvements 4 -3 Washington County's transportation plan is part of the document. Based on Washington County proposed land use, a traffic generation model was developed that forecasts traffic demand on major state and county roads to 2015. The preliminary results of the forecasts and analysis of existing and future road network as they effect the Stillwater area are listed below: Road Improvements - Extend CR 15 ( Manning Avenue) from TH 36 to TH 5. - Widen CR 15 to 4 -lanes between TH 36 and TH 96 (high priority). - Add traffic signals along CR 15 from TH 36 to TH 96 as needed. - Improve operation of Osgood Avenue between TH 36 and Orleans Street (5 -year CIP). Mn DOT Highway Improvements MnDOT has scheduled improvements to the TH 36 /CR 5 intersection for 1997. This improvement will widen CR 5 to four lanes plus turn lanes through the TH 36 interchange and will extend the city bicycle /pedestrian trail south to the high school. Construction of the new TH36 bridge is scheduled to begin in 1997 and be completed by 2000 according to the most recent MnDOT schedule. This major project along with the recent traffic signal installation at TH 36 and CR 15 will significantly reduce traffic levels on Stillwater streets. Objectives, Policies and Programs The following objectives, policies and programs comprise the transportation plan element of the comprehensive plan. Objectives Maintain the carrying capacity of through streets while minimizing the negative impact on adjacent residential areas through landscape treatment and street design. Maintain the areas next to Greeley, Owen, Olive Myrtle Chestnut, Third, Fourth and Pine Streets in residential use and not allow the areas to convert to commercial land use. Through road design and traffic management, limit through traffic in residential areas. Work with MnDOT and Washington County to study and improve state highways and county roads where needed. Plan new development areas to coordinate with planning for the roads that provide access to the development sites, i.e., CR 15, CR 12, CR 64, TH 96, TH 36. Policy 1: Create a unified, continuous system of arterials and collectors. Policy 2: Segment local residential streets so that all traffic flows onto collectors or arterials. Policy 3: Support new TH 36 bridge and related TH 36 improvements Policy 4: Work with Washington County and MnDOT on TH 36 1CR 15 improvements and the planning and construction of a Frontage Road between CR 15 and CR 5. Policy 5: Consider modifications to residential street design in order to discourage through traffic. Policy 6: Improve traffic and parking in and around commercial areas. Policy 7: The city shall continue to make every effort to assure that adequate enforcement is available to assure traffic safety in residential areas. Policy 8: The city shall make every effort feasible to assure that through traffic is diverted from residential streets to arterials. Program (1) Develop an area -wide coordinated road improvement program with MnDOT and Washington County. Program (2) Prepare a Greeley /Owens corridor study and Third/Fourth Street traffic study with Washington County. 4 -9 Program (3) Prepare Deerpath traffic study to redude or eliminate cut through traffic and not significantly impact other- residential areas. Program (4) Prepare and keep up to date a parking plan and parking management program for the downtown Program (5) Improve the Second Street/Mulberry Street parking lot and Second and Olive Streets lot as convenient, attractive public parking lots. Program (6) Implement downtown parking district to pay for maintenance of downtown parking lots. Non -Auto Travel The following sections discuss non -auto ways to better accommodate travel demand. Ways discussed include traffic demand management, bicycle paths, pedestrian ways and transit. Policies and programs are described for each mode of travel. Travel Demand Management Travel demand management (TDM) refers to strategies that improve the operation of the transportation system by limiting demands on the system in contrast to strategies that improve the system itself or increase the supply of roads. It includes techniques to reduce peak period vehicle trips by shifting travelers from driving alone into shared ride arrangements, such as ride sharing or transit or into alternative work arrangements, such as flextime and telecommuting, that remove trips from the peak travel times. The concept of management demand on the transportation system is fairly new in suburban settings, although it has been successfully used by some individual companies such as Andersen Windows and 3M Company for many years. The goal of a TDM program is to meet specific travel objectives such as increased auto occupancy rates, decreased peak hour travel and increased transit use. Benefits may include: - Reduced travel demand and traffic congestion Reduced demand for new or expanded roadways Preservation of limited dollars for transportation improvements Energy conservation and improved air quality. A TDM program involves specific steps to improve the efficiency of the roadway network by focusing actions on vehicle- carrying efficiencies. Basic elements of TDM program may include the following techniques: Ride sharing programs including car pool and van pool. Employer incentives such as subsidizing van pools, preferential parking for car pools and van pools, subsidized transit passes, flextime, telecommuting, staggered work hours. Reserved lanes for high- occupancy vehicles, highways or arterials. Park and ride lots. Bypasses on freeway ramp meters for buses and car pools. Guaranteed ride home programs for car poolers and bus riders. Road and parking pricing as a peak hour congestion management tool. Public transit service, both local and with regional linkage. Bicycle facilities and incentives. All of the TDM techniques should be implemented through a partnership of the state, the region, cities, employers and the county. The common goal is to encourage travelers to change their behavior through incentives, enhanced services and provision of special high occupancy facilities. The greatest motivations for behavior change are perceived opportunities for the individual travelers 4 -10 to save time or money. In the private sector, companies like Andersen Windows have effectively employed TDM techniques for many years. Similar programs could be successful in high employment areas of the St. Croix Valley. The coordination of transportation demand management operation among major employers in the Stillwater area is recommended. The role of the City of Stillwater should principally be one of support, encouragement and cooperation with employers and units of government working to carry out TDM strategies. This might include cooperating with Washington County to establish park and ride lots, with MCTO to provide improved public transit, with the state in establishing HOV lanes on TH 36 and with private employers in coordinating their individual efforts. Pathways and Sidewalks Beside vehicular movement, there are other ways to move around the neighborhood and throughout the Stillwater community. This non -auto movement may be for travel purposes, to get a loaf of bread or visit a neighbor, or for recreation. Based on the resident opinion survey there is significant community interest in improving the walkway /pathway system in and around Stillwater. Pathways add to the "quality of life" and "sense of community" of an area and to the relationship of one neighborhood to another. Trails and pathways can also link recreational facilities, natural areas or schools to residential areas. The city has the opportunity with this comprehensive plan to provide a design for future pathway improvements. The plan should tie in with county trails, (CR 12, Stonebridge Trail) and provide new links between state and county recreational areas such as a recreational trial along the St. Croix between Afton State Park and William O'Brien State Park or Lake Elmo Park Reserve. A pedestrian trail system should be an element of the circulation /open space system of newly developing residential areas. Trails would be open to the public, provide access to neighborhoods park facilities and beyond the development to community attractions. The Minnesota Zephyr Railroad right of way provides a unique opportunity for a pedestrian or bicycle connection between the downtown and the URTPA. Railroad safety consideration would have to be addressed with the development of a railroad pathway. City ravines and open space areas represent a potential location for trails. Trails and paths locations are described and mapped in the parks, trails and open space section of the plan. Bicycles Bicycles are used for recreation as well as transportation purposes. The two most basic needs for providing and improving bicycles facilities for all purposes are: (1) to provide continuous facilities, including the removal of physical barriers and the provision of system continuity across political boundaries, and (2) to provide increased safety for the bike user. Recreational bicycle facilities are addressed in the parks, trails and open space plan section. The key challenge for Stillwater in encouraging bicycle ways as a transportation mode will be to focus bicycle facility construction along existing streets and in developing areas where right of way is still available and to use county and state roadway reconstruction projects as opportunities to construct needed pathways and trails. Specific route selection criteria and design facility treatment are available in the AASHTO guide to bicycle trial planning and design. MnDOT will soon be publishing a bikeway design book which sets forth guidelines on facility type, location, traffic, geometric design, accident risk and traffic operations factors. Both of these documents, especially the MnDOT design book, should be 4 -11 used in designing Stillwater bicycle facilities. Pedestrian Ways Pedestrian ways (sidewalks, paths and trails) are an important element in the intermodal transportation system, especially when coordinated with neighborhood design and transit. Neighborhood design can effectively integrate pedestrian facilities and create more efficient and aesthetically pleasing connected living environments. Pedestrian trips can be encouraged in developing areas through mixed land use patterns which place homes closer to stores, schools and services. Good pedestrian access to bus stops enhances the use of public transit. In Stillwater, the emphasis should be on maintaining exiting sidewalks and adding new facilities in residential areas where demand dictates. The parks and open space section proposes a comprehensive pedestrian trail system comprised of sidewalks and pathways for the existing city and developing URTPA. Transit Stillwater is currently served by the Metropolitan Transportation Commission commuter route service to St. Paul and a local circulation system (Valley Transit). Valley Transit users are primarily senior citizens dependent on local transit services for shopping and for medical and recreation services. The commuter service is scheduled primarily for home to work trips. Recommendations in the regional transportation plan urge increasing capacity for rush hour routes and coordinated local circulation transfers with commuter route service. There are no plans to provide light rail transit to Washington County or the Stillwater area. At one time such services were planned for the Interstate 94 corridor but that location has been eliminated from the Washington County and regional transportation plans. Objectives: Develop pedestrian pathway and bikeway plan to proAde for recreational and commuter trips. Provide safe pedestrian access to all schools Maintain existing public stairways throughout the community, particularly in the downtown. Work with the Washington County and the state in developing park and ride lots, trailway systems and other programs to reduce auto use. Coordinate city bikeway and pathway plans with Oak Park Heights, Stillwater Township and Washington County. Encourage the development of shuttle bus service in the downtown and other areas of the community. Link neighborhoods and other destinations by developing ravine trails and greenways as appropriate for pedestrian paths. Study the use of the Minnesota Zephyr railroad right of way for potential use as a walkway and/or bikeway connecting downtown to the city areas to the west. Increase transit ridership and support transit service for transit dependent residents, particularly senior citizens, provide adequate transit facilities (bus stops, transfer station) to support transit use, and cooperate with the regional transit authority and Washington County to provide conveniently located park and ride facilities at major transit stops. Policy 9: Ensure safe travel for pedestrian and especially school aged children going to and from school. Policy 10: Encourage transit use through subdivision design, land use planning and education. Policy 11: Use TDM to make most efficient use of existing road systems and minimize impact on adjacent areas. Policy 12: Plan and construct a city -wide bikeway system throughout the city to connect major activity centers and 4 -12 scenic open space area. Policy 13: New and upgraded bridges, crossings and overpasses and TH 36 Frontage Road shall include bicycle lanes. Program (7) Develop and implement a bikeway system facilities plan and implementation program. Program (8) Expand and improve bicycle routes and connect them to each other and other major destinations. Program (9) Amend subdivision ordinance to require bicycle facilities according to bikeways facility plans. Program (10) Provide bicycle parking locations and attractive racks at key locations including parks, downtown and commercial center. Program (11) Work with school district to provide convenient, safe access for students with to school. Program (12) Develop and promote traffic safety and education programs. Program (13) Connect Stillwatees bikeways to county bikeway routes. Program (14) Develop and implement a sidewaik/pathways improvement program for the existing city and new developing areas. Program (15) Improve appearance of bus stops and better integrate into neighborhood or area design. Program (16) Encourage MnDOT to provide continuous bicycle paths along the Frontage Road from CR 15 to TH 95 and along 95 from Oak Park Heights to TH 95 through downtown. 'See responsible agency list. 2See implementation project/action list. 4 -13 Policy Program Section /Subsection No. No. Responsible' Program/Action 4.0 Transportation Auto Related 1 CPC, CDD, PW 24 2 CPC, CDD, PW 19 3 CC, CDD, PW 24 4 CDD, PW, MNDOT 24 5 CPC, CDD, PW 19 6 CPC, CDD 24 7 CC, PD 24 8 CC, PW, CPC 19,24 1 CDD, PW, MNDOT, WC 24 2 CDD, PW, WC 20 3 CDD, PW 21 4 CDD, PW 22 5 CDD, PW 17 6 CDD, DTPC Non -Auto 9 CPC, CDD, PW, NG 17,19 10 CPC, CDD 4,24 11 CDD. PW 4,8 12 PB, CDD, PW 15,17 13 PB, CDD, PW, MNDOT 15,17 7 PB, CDD, PW 15,17 8 PC, CDD, PW 15,17 9 CPC, CDD 4,8 10 CDD, PW 17 11 CDD, PW, SD 24 12 PD 24 13 CDD, WC 15,24 14 CDD, PW 15,17 15 CPC, CDD, NG 19 16 CDD, PW, MNDOT 15,17 'See responsible agency list. 2See implementation project/action list. 4 -13 City of Stillwater Comprehensive Plan December 12, 1995 Natural Resources and Open Spaces Open space can be defined as any parcel of land or water which is essentially unimproved and devoted to an open space use for the purpose of preservation of natural resources, managed production of resources, outdoor recreation or public health and safety. Key goals: Goal 1: Create a natural resource open space system that preserves open spaces within and outside the City of Stillwater. Goal 2: Use the system to connect open spaces, parks, activity centers and neighborhoods. Goal 3: Protect and enhance the St. Croix River as a natural open space system and recreation resource. The plan proposes a network of open spaces to provide relief from urbanization, access to natural areas and the ability to travel along open space corridors to reach destinations throughout the city. The network can be created by fitting together and connecting open space components in a continuous series of sites, locations and pathways. Open space resources are different in the existing city from the URTPA requiring a different strategies for protection and preservation. Existing Stillwater Stillwater is blessed with a variety of open space resources that make the area distinct and interesting. A dominant natural feature is the St. Croix River the eastern border to Stillwater and the downtown. Stillwater's history began on the St. Croix and the river continues to be an important natural element to the City of Stillwater 5 -1 and downtown open space system. (Refer to parks section for a description of the riverway parks and open space plan.) The ravines leading to and blufflands overlooking the river contribute to the open space system particularly for the older developed part of the city. Over time, many of the ravines have been filled in to make room for roads and building sites, but recently the community has developed an awareness and sensitivity to the preservation of ravines as a natural resource, open space separator and possible trail location. Remnant of land in developed areas of Stillwater provide identity and interest to existing neighborhoods. These remnants are usually left over patches of irregular shaped land owned by MnDOT, as highway right of ways, a drainage pond, the city for utility lines, Washington County tax delinquent lots or private land owners. Some of these remnants of land were not economically developable in the past but with the scarcity of developable vacant sites and interest in living close to nature these "constrained" sites are becoming more valuable and developable. Many times remnants sites provide informal play areas for neighborhood children. Similar to neighborhood parks, remanent sites are many times used as drainage ways or contain easements for storm or sanitary sewers or water lines. When remnants sites connect together, they can provide a travel corridor and habitat for birds and animals such as the neighborhood raccoon, winter cardinals or summer oriels or possible a seasonal deer or pheasant. These remnants are endangered and need to be identified, protected and managed if they are to remain. Newer developed areas 1970 + usually have planned open space areas. Croixwood has an extensive system of parks and open space areas. Residences are setback from Long Lake with a publicly owned buffer separating yards from shoreland areas. Specific access points are provide to Long Lake but a continuous trial around the lake is not possible. Oak Glen is developed around two golf courses providing visual open space and active recreation for golfers. McKusick Lake and Brown's Creek also boarder the development. A new trail on McKusick Road will be a part of the city's extensive trial system. The map on the following page shows open space resources in the existing city. Besides the existing city, the URTPA provides an opportunity to plan for open space resources in advance of development. URTPA Open Space The URTPA is defined by its open space resources. Some of the resources are natural hazards or development constraints which assures their protection. Others such as woodlands view corridors, tree lines or lay of the land are not protected but never the less important to the open space character of the area. From north to south the URTPA exhibits a variety of open space resources as shown on the inventory map. The Brown's Creek corridor enters the planning area from the north west (CR 15/TH 96) and runs to the east eventually crossing McKusick Road, Stonebridge Trail, TH 96 and emptying into the St. Croix. Brown's Creek is a DNR protected trout stream and regulated by special development and setback requirements. The north boarder, Highway 96 of the URTPA, is a county designated scenic highway. The city's land use and development policy is consistent with the county's scenic highway designation. A greenbelt buffer is indicated along TH 96. Brown's Creek and its tributaries remain a 5 -2 dominant factor for the URTPA lands south of McKusick Road and north of Boutwell. The area is generally low and drained by tributaries to Brown's Creek. Seventy -five to one - hundred and fifty foot setbacks are designated along the wetland corridors to ensure preservation of the open space resource and provide for public access and enjoyment. The relationship between wetlands and development will be critical to the future of the areas. To the south of Boutwell Road and north of CR 12 Brown's Creek tributaries continue to be the major natural feature. The proposed land use plan calls for a continuation of the semi rural large lot development pattern that currently exists with the exception of a 15 acres site designated single - family, attached /town house. The townhome site is bordering wetlands on the east and south. This area is critical to the overall development of the URTPA trail and open space system A coordinated master trail plan should be prepared by the City of Stillwater in order to connect north and south URTPA planning areas and create a comprehensive trail system. South of County Road 12 lies the Long Lake planning area. The Long Lake area is dominated by Long Lake its shorelines and adjoining woodlands. Portions of the shoreline are steeply slopped and are protection from development impacts. A major woodland and series of wetlands dot the area providing a natural storm water drainage system. Other natural features include the gently rolling topography and planted tree lines. All of these features will need to be considered and preserved in the planning for development of the area. The lands south of 62nd Street North slope to the middle at the south end of Long Lake. Extensive pine tree plantings buffer residential portions of the site from vacant lands to the south and west. A series of detention ponds and drainage ways carry storm water from the Stillwater Business Park to Long Lake. The URTPA is comprised of three subareas that are dominated by a system of open spaces and natural features that provide a starting point for planning the development of the areas_ The three areas natural open space system will be connected by a comprehensive trailways plan that provides access between neighborhoods and public access to open space resources. Open space policy is organized in these areas; overall, existing city and URTPA. Objectives, Policies and Programs Community -Wide Objectives Create an open space system in Stillwater to protect the natural resources of the area. Preserve key scenic corridors and features and protect the visual beauty and semirural character of the road sides. Preserve existing open space lands outside Stillwater but within the greater Stillwater planning area to maintain an urban /rural edge and separation between Stillwater and semirural township areas to the west and north of Stillwater. Link open space areas in the existing city, the URTPA and greater Stillwater through a series of trails. Preserve natural features including trees, vegetation, slopes, wetlands and wildlife habitats areas. Existing City Objectives Develop and open space system comprised of parks, school grounds, ravines, shorelands, wetlands and land remanent for the visual and recreation enjoyment of the city. Preserve, protect and restore ravine areas, shorelands and blufflands to prevent site erosion, 5 -3 sedimentation of streams and provide a natural separation. Protect large trees and tree stands as amenities to the community and neighborhood. Encourage natural drainage systems to maintain the natural character of ravines and waterways. Develop environmental education program in natural areas to study plant and animal communities. Protect St. Croix river open space areas from inappropriate development. Policy 1: The city shall use trails, wetland buffers and ravines to connect parks and open space areas. Policy 2: The city shall allow limited controlled public access to sensitive habitats areas or areas that could be impacted by public access. Policy 3: The city shall identify and protect neighborhood open space sites of aesthetic, recreational or natural resources value in preparing neighborhood plans. Program (1) Inventory all ravines and remanent lands in the existing city and develop a policy regarding purchase or protection of those lands. Program, (2) Review ownership of ravines and remanent land and obtain control over such lands through fee ownership, open space easement, utility easement or resource protection regulations. Program (3) Develop specific trailways plan for the existing city connected to URTPA trails and trails surrounding Stillwater. Program (4) Develop a pedestrian and bike trail along the St Croix from Oak Park Heights to TH 96 as part of a St. Croix Riverway Trail System. URTPA Objectives Establish an open space framework for new development consisting of wetlands, woodlands, tree stands, views and site topography that can be used to guide development plans and preserve the natural character and resources of the area. Protect wetlands and wetland buffer areas. Protect significant woodlands and tree stands. Protect sloped areas and vegetated shorelands. Maintain buffering and visual separation between developed areas adjacent semirural areas. Policy 5: Develop a city -wide trail system that links open space, natural areas and parks. Policy 6: The city shall work with Stillwater Township and Washington County to create an integrate system of open space areas, trails and parks. Policy 7: Scenic roadways shall be enhanced and protected as routes leading from rural to urban areas. Policy 8: Require special landscaping of all scenic routes through the URTPA. Policy 9: Coordinate scenic route improvements with roadway improvements. Policy 10. Encourage Grant and Stillwater Townships to use the rural cluster concept in areas adjacent the City of Stillwater to maintain open space and retain rural character. Program (5) Obtain open space easements and dedication to open space areas. Program (6) Require trails to be installed as a part of public facility improvements for new development. Program (7) Develop landscape plans for scenic roads and make improve as a part of road improvement projects or the development review process. Program (8) During the preparation of specific area plans for the URTPA, make sure open space resources areas identified incorporated the development design. Program (9) Require site specific design review when called for to protect a sensitive natural resources. Program (10) Require landscape plans and forest management plans for wooded ares in the URTPA. Program (11) Develop ordinances to protect wetlands, woodlands and other natural features. Program (12) Implement existing environmental protection ordinances as a part of specific plan preparation and subdivision or PUD review. 5 -4 � 1 i D4 / L_ Aw 'j ter 1 ' I r i r Flood Plains I ,• 1 CCU C� A kr r � i_•/ �_ i�,� -, C'u.F _'`"'r'.�r'_��_'�� CSI ------------ 5wUV5A,% A - jti - 1995, Insight Mapping & DemoUaOhiu, Inc- LEGEND: _ Flood Plain Water City Limits. ��' Expansion Area Lin -dts - JI 1 s ri— 1 ^___ ^ f • !! 7 ^ s 2504' 11/n95 i� f � r Itsr I � . 4:uy of btuiwater t.:om•• uuty vc"iopment Flood plains appear as identified by the Federal Emergency Management Agency. r I i ater Restrictive Soils I- = 2500' 11!13195 t` 1 7 I f 1 I 4 S 09AAA - JH - 1995, height Mapping & Demagraphlcs, Inc- city of LEGEND: ® Hydric Soils Soil Slope > 15% Water IY City Limits Al Expansion Area Limits City of Stillwater Comprehensive Plan December 12, 1995 Housing The housing section deals with residential land use. The primary focus on special housing needs and problems that relate to housing conditions. Stillwater is fortunate to have a good mix of housing types attached and detached, tenure, owner /renter and rent levels. The challenge for Stillwater will be to maintain that housing and household diversity over the planning period_ Key Goals 1 2 3 Provide a quality living environment for the citizens of Stillwater by maintaining and improving the city's existing housing stock and by planning for a range of new housing opportunities. Provide a choice of housing types and densities suitable to meet the needs of the young, locally employed and elderly through zoning and land use planning. Use the land use map to designate residential sites appropriately located for a range of housing densities. Objectives: Maintain the city housing stock. Provide housing opportunities for all economic groups. Provide a range of housing types and tenures Locate multifamily and attached housing close to community services and public parks. lem Housing Characteristics Stillwater has an older housing stock. The median age of Stillwater housing is 1950 with only 12 percent of the housing units built since 1980. Fully 40 percent of the Stillwater housing stock was built before 1940 with 70 percent of the North Hill, South Hill, West Hill and Downtown area constructed before 1940. The census figures show Oak Glen as the newest construction area for the 1980's, Croixwood for the 1970's and Sunnyslope and Forest Hills in the 1960's. Stillwater is typical of Washington County and the state with just over 50 percent of the population living in the same household in 1985 as 1990. Of those who moved into Stillwater from 1985 to 1990, 22 percent moved to Stillwater from other parts of Washington County, 12 percent moved in from other parts of Minnesota and 12 percent from another state. Overall, the census information points to the strength of the family in Stillwater in terms of number of people per household and housing type. According to the 1990 census, there were 5,105 households in Stillwater. The household were distributed in the following categories: UNITS IN STRUCTURE 1 unit, detached 3,620 1 unit, attached 191 2 to 4 units 680 5 to 9 units 193 10 or more units 370 Other 10 Total 5,105 Of the total 5,145 total units, 23 percent or 1,278 of the units were in rental structures as shown below: RENTAL HOUSING UNIT TYPE 1 unit, detached 144 1 unit, attached 111 1 to 2 units 267 3 to 4 units 197 5+ units 459 Total 1,178 Housing Conditions Planning 1994 - 1992 period, a windshield survey was conducted on the condition of housing. This included every single family and multiple family dwelling in Stillwater. The purpose of the survey was to get an indication of the conditions of and need for improvements to Stillwater's existing housing stock. The following criteria was used as a basis for the survey which was also used in the survey. Good Condition: No defects No major repairs Normal Condition: No defects or only slight defects which normally are corrected during the course of regular maintenance. Lack of paint Slight damage to porch or steps Slight wearing away of mortar between bricks or masonry Small cracks in walls, plaster or chimney. Slight wear on floors, door sills, door frames, window sills or window frames. Broken gutters or downspouts. Fair Condition: Holes, open cracks, rotted, loose or missing 6 -2 materials over a small area of the foundation, walls or roof. Shaky or unsafe porch, steps or railings. Some rotted or loose window frames or sashes that are not longer rainproof or windproof. Broken or loose stair treads or broken, loose or missing risers, balusters, or railings of outside stairs. Deep wear or door sills, door frames, outside steps or floors. Missing bricks or cracks in the chimney which are not serious enough to be a fire hazard. Makeshift chimney such as a stove pipe or other uninsulated pipe leading directly from the stove to the outside through a hole in the roof, wall or window. Poor Condition: Endangers the health, safety and well -being of occupants. One or more critical defects or combination of intermediate defects in sufficient number or extent to require considerable repair or rebuilding, or is of inadequate original construction. Critical defects result from continued neglect or lack of repair or indicate serious damage to the structure. Example of critical defects are: Holes, open cracks or rotted, loose or missing material (clapboard siding, shingles, bricks, concrete, tile, plaster or floor boards) over a large area of the foundation, outside walls roof or chimney. Substantial sagging of floors, walls or roof. Extensive damage by storm fire or flood. Condition of structure was based on visual appearance of the exterior of the structure. Therefore, a structure that appears to be sound from the outside may, upon further examination be deteriorating inside. Likewise, a structure that appears neglected from the outside may prove to be sound on the inside. Condition of structure may change dramatically if the trend to restore older houses continues. In the middle 1950's, many people chose to improve their houses. This trend seems to be occurring again in the early 1990's. Many houses that were listed as fair at the beginning of the survey have since been improved. Of the 3,742 structures surveyed, 64 percent were in good condition, 28 percent were in normal condition, 7 percent in fair condition and 1 percent in poor condition. The study concludes that approximately 300 structure are in need of minor or major repairs. This compares to 200 structures in 1980. Good condition housing is important to community character. The city would like to improve the condition of its existing housing and enhance the residential quality and character of Stillwater's neighborhoods. Quality housing requires adequate city facilities and services. The city can support residential development only in those areas where city facilities and services are viable or will be provided by the development. The city will extend utilities and services only into the most viable expansion areas and will maintain development fees at a sufficient level to finance infrastructure cost. Older neighborhoods should be maintained and upgraded. To that end, the city will seek the cooperation of the Washington County HRA and lending institutions for financing structural improvements and neighborhood investment. The city will endeavor through the development approval process to insure that Stillwater' community character, housing quality and physical and visual environment are preserved and improved and that natural features are incorporated into the design of residential developments. Infill Development and Affordable Housing The existing Stillwater housing stock is Stillwater's most affordable source of housing. Preserving the 6 -3 stock of existing housing units in its neighborhoods especially around the downtown and in infill areas avoids expensive costs associated with new construction and extension of public facilities and services and provides sites close to exiting services and facilities. Regulations that encourage rehabilitation and infill are demolition control ordinances, housing replacement ordinances and sensitive code enforcement. Non - regulatory measure to promote rehabilitation and infill include infrastructure maintenance, reuse of city owned lands for infill housing, housing rehabilitation assistance programs, participation in first -time home buyer programs for existing housing as well as new housing. infill Housing Infiii hosing development promotes housing affordability by using existing infrastructure and services rather then requiring expensive extension of roads, water and sewer lines and other facilities. The city expansion areas are primarily residential areas and do not have mixed uses within close proximity of housing like the older existing city neighborhoods. New URTPA residential development is at relatively low densities, two - four dwelling units per acre in part to preserve open space and environmental quality. The new areas will have an extensive open space recreation trail system but be dependent on the auto for work and shopping trips. Car pool or van pool parking locations are designated in the plan. During the comprehensive planning process a hard look was taken at trying to create new city development areas in the spirit of old communities with a mix of land uses, high and low densities, wide architectural diversity, mix of housing types and affordability including assisted housing - less transit dependent more pedestrian oriented. From that review it was concluded that many of the planning and design principals of the past are still viable but have to be applied to Stillwater's unique environmental setting and social - economic conditions. The over riding concern for newly developing URTPA areas is environmental quality and natural resource protection and rural character, This has been the trend since the early 1980's and has resulted in strict environmental protection ordinances and regulation. The environmental priority and regulations have effected the design possibilities and public acceptance of new urban density development. The URTPA is comprised of three areas. Each area contains unique natural resources that are safeguarded through this plan. An extensive trail and park system will be provided for the enjoyment of the neighborhood and the community at large. Each area will contain a range of single family housing, large lot, small lot and attached housing. Employment and shopping opportunities will not be provided within walking distance except for the R & D office park area, and public transportation will not service the new areas. Park and ride or car pooling lots will be provided for commuting to the Twin Cities and other distant employment locations. Infill opportunities within the City of Stillwater were studied and sites were located in the downtown and on the north edge of the West Stillwater Business Park areas. There is very little vacant land in the downtown but the City of Stillwater over the last five years has purchased or leased four parking lots that could provide sites for housing development in the air spaces over them. The lots are located along North Main Street and Second Street at Mulberry and Olive. As many as 300 multifamily housing units could be developed over these sites. As with all projects in the downtown, good design and ft is important for a project to be successful. Additional household in the downtown area would enliven the area as a residential area and support many of the downtown business. The Second Street sites would be particularly appropriate for additional senior housing. (Rivertown Commons, a senior project, located on Second Street has a 200 6 -4 person waiting list). Besides the downtown, the West Stiliwate Business Park is developing as a new community center. Goods and services are provided withir walking district of residential areas. Parks, trail: and sidewalks have been constructed fo pedestrian transport. Local circulation and MTC commuter bus services are available. A senio center and assisted housing is located near the area. In the downtown, city services are in and coulc accommodate the development without additions infrastructure costs. While preparing neighborhood plans opportunitie: for small scale infill sites can be considered Neighborhood character and fit will be ar important consideration in older residential area: around the downtown as it is in the downtown. Innovative Zoning Techniques: Zero lot line; cluster and mix use zoning Innovative residential site planning techniques such as zero lot lines developments or cluster development result in cost savings by allowinc more compact lot sizes and arrangement o' infrastructure at greater densities then possiblE using traditional zoning. The modification of development standard: including minimum lot size, setbacks, stree widths, off - street parking requirements maximum lot coverage, sidewalks and site improvement: requirement reduce costs. Clus er zoning allows increased density of concentrated portions of proposed a developmen reducing infrastructure costs and preserving open space. Cluster development is usually a part of planned unit development, PUD, and combine - with zero lot line development. The illustratio shows a cluster development concept plan an describes the benefits of the urban clustE development. Besides the urban cluster development concept, the rural cluster concept has recently been discussed and proposed in part of the Washington County. The purpose of the rural cluster concept is primarily to preserve rural character and reduce the visual impact and land coverage at densities that can be supported by on -site wells and septic systems. The rural cluster concept is applicable to semi - rural areas where open space is the primary purpose but not in areas with urban services. Housing Affordability 1990 Census housing and socioeconomic information provide a picture of Stillwater housing needs. Stillwater's Shortage of Rental Units by Unit Size for Households at 1 -30 Percent of Median Income Numbef of Number Unit Household Size Households Unit Size of Units' Shortage 1 -2 Person elderly, Indv. 217 1- bedroom 86 (131) 3-4 Person small family 170 2- bedroom 79 ( 91) 5+ person large family 9 3- bedroom 38 29 Total 396 203 (193) 'Includes vacant units for rent 108 'Includes vacant units for rent Nonfamily household are included in the categories above. Nonfamily household are included in the categories above. Source: 1990 Census. CHAS data than 30 percent of a household's income Source: 1990 Census, CHAS data Stillwater's Shortage of Rental Units by Unit Size for Households at 31 -50 percent of Median Income Number of Unit Number Unit Household Size Households Size of Units' Shortage 1 -2 Person elderly, Indv 145 1- bedroom 215 70 3-4 Person small family 73 2- bedroom 164 91 5+ person large family 25 3- bedroom 46 21 Totat 243 425 182 'Includes vacant units for rent Nonfamily household are included in the categories above. Source: 1990 Census, CHAS data Stillwater's Shortage of Owner Units by Unit Size for Households at 0 -30 percent of Median Income Paying Household Size Households than 30% 30 - 49% Number of Unit Number Unit Household Size Households Size of Units' Shortage 1 -2 Person elderly. Indv. 88 1- bedroom 0 (88) 34 Person small family 44 2- bedroom 0 (44) 5+ person large fatuity 0 3- bedroom 24 24 Total 132 24 108 'Includes vacant units for rent Source: 1990 Census. CHAS data Nonfamily household are included in the categories above. 'Cost of burden is defined as paying more than 30 percent of a household's income Source: 1990 Census, CHAS data Stillwater's Shortage of Owner Units by Unit Size for Households at 31 -50 percent of Median Income Number of Unit Number Unit Household Size Households Size of Units' Shortage 1 -2 Person elderly, Indv, 185 1- bedroom 24 (161) 34 Person small family 46 2- bedroom 56 10 5+ person large family 8 3- bedroom 104 96 Total 239 184 (55) 'Includes vacant units for rent Nonfamily household are included in the categories above. Source: 1990 Census. CHAS data Cost Burden' for Very Low Income Owner Households (Households a10 -30 percent of Median Income) Total Paying less Paying Paying Household Size Households than 30% 30 - 49% 50% or more 1 -2 Person elderly, Indv_ 217 18 18 161 34 Person small family 170 28 28 110 5+ person large family 9 2 2 7 Total 396 48 70 278 'Nonfamily households are included in the categories above. Source: 1990 Census, CHAS data Cost Burden' for Very Low Income Owner Households (Households at 0 -30 percent of Median Income) Total Paying less Paying Paying Household Size Households than 30% 30 -49% 50% or more 1 -2 Person elderly, Indv. 88 20 44 24 34 Person small family 44 25 1 18 5+ person large family 0 0 0 0 Total 132 45 45 42 'Nonfamily households are included in the categories above. Source: 1990 Census. CHAS data 'Cost of burden is defined as paying more than 30 percent of a household's income on housing. Cost Burden' for Low Income Renter Households (Households at 31 -50 percent of Median Income) Total Paying less Paying Paying Household Size Households than 30% 30 - 49% 50% or more 1 -2 Person elderly, Indv. 145 26 75 44 34 Person small family 73 31 36 6 5+ person large family 25 4 21 0 Total 243 61 132 50 'Nonfamily households are included in the categories above. 8 0 Source: 1990 Census, CHAS data Total 239 'Cost of burden is defined as paying more than 30 percent of a household's income on housing. 'Nonfamily households are included in the Cost Burden' for Low Income Owner Households (Households at 31.50 percent of Median Income) Source: 1990 Census. CHAS data Total Paying less Paying Paying Household Size Households than 30% 30 -49% 50% or more 1.2 Person elderly, Indv. 185 176 5 4 34 Person small family 46 30 12 4 5+ person large family 8 8 0 0 Total 239 214 17 8 'Nonfamily households are included in the categories above. Source: 1990 Census. CHAS data 'Cost of burden is defined as paying more than 30 percent of a household's income on housing. 6 -5 Uemana oupply very Low income Kenter (Very low Income (Affordable HHs in Affordable Housing Renter HHs) Units) "Housing costing no more than 30 percent of a household's income: ($3241mo. or less for a family of 4). "Households at 0 - 30 percent of median income: Income of $12,990 or less for a family of 4 in 1990. Source: 1990 Census, CHAS data 500, 1 400 300 200 100 11, 1990 Stillwater's Affordable Housing* for Low Income Households- Demand Supply Low Income Renter (Low InCome (Affo(dable HHs in Afforable Housing Renters HHs) Units) *Housing costing no more than 30 percent of a household's income: ($324 - $541/mo. for a family of 4). " "Household at 31 - 50 percent of median income: Income of $12,990 - $21,850 for a family of 4 in 1990. Sourc e: 1990 Census, CHAS data Demand Supply Low and Very Low (Low and Very Low Income (Affordable Renter HHs in Renter HHs) Units) Affordable Housing "Housing Costing no more than 30 percent of a household's income: (5541Imo. or less for a family of 4). "Households at 50 percent or less of median income: Income $21,650 or less for family of 4 in 1990. Source: 1990 Census, CHAS data Housing Needs Based on comprehensive housing affordability strategy (CHAS) data provided by the Department of Housing and Urban Development (HUD) from 1990 census data to the metropolitan council the following affordability needs are evident in Stillwater: Rented very low income, elderly houses are the most apparent household type needing assistance (217 household vs 87 affordable units). There is adequate rental housing stock for low income households of all types. Elderly very low and low income owner household are in need of assistance (273 households and 13 housing units). This is true but to less extent for small families. Seventy -four percent of very low income elder households pay more the 50 percent of their income for housing while 64 percent of small families earning less than 30 percent of median income pay more than 50 percent of their income for housing. There is a demand for 639 units of renter very low and low income housing and 628 affordable units available with only 109 of those units occupied by very low or low income households. See following charts. Conclusions Stillwater has a housing affordability need for elderly very low and low income households. Stillwater has an adequate supply of affordable housing units but they are not occupied by very low and low income households. Most elderly very low income household owners pay more than 30 percent of median income for housing. The housing policies and programs section provide a city housing plan to address affordability and other housing needs. Rental Housing Survey In 1993, Washington County Housing and Redevelopment Authority conducted a rental housing survey for Washington County including the Stillwater area. Results from the survey are summarized below: 450 housing units were surveyed just less than 10 percent of the total City of Stillwater housing stock and 30 percent of the rental housing stock. Of 475 units surveyed, 450 were from projects with 3+ dwelling units. Summary of Stillwater Rental Survey Data Table Multifamily Properties (3+ units) Summary of Stillwater Rental Survey Data Multiple Unit Properties - 1993 Average Rents Average rents for multiple -unit properties in this community were lower for the one, two and three bedroom units and were higher for the zero bedroom units surveyed when compared to the county as a whole. The average rent for the duplex properties surveyed in this community were lower for the two and three bedroom units and were higher for the one bedroom units when compared to the county as a whole. For single family homes, average rents were lower for the two and three bedroom units surveyed when compared to the county. Average rent amounts are based on the contract rents charged for each unit by bedroom number and housing type. These figures do not account for the square footage of a unit, costs associated with utilities or services that are the responsibility 08R 1BR 2BR 38R Totals Number of Units 16 168 264 2 450 Percent of Markel Surveyed 16% 37,3% 58.75 .4%100% Average Rent 361.88 443.06 536.50 552.50 475.99 Number of Vacancies 0 2 6 0 8 Vacancy Rate 0% 1.2% 21% 0% 1.8% Average Rents Average rents for multiple -unit properties in this community were lower for the one, two and three bedroom units and were higher for the zero bedroom units surveyed when compared to the county as a whole. The average rent for the duplex properties surveyed in this community were lower for the two and three bedroom units and were higher for the one bedroom units when compared to the county as a whole. For single family homes, average rents were lower for the two and three bedroom units surveyed when compared to the county. Average rent amounts are based on the contract rents charged for each unit by bedroom number and housing type. These figures do not account for the square footage of a unit, costs associated with utilities or services that are the responsibility Et 0 0 O O O O O to fl fl O I o 0 10 CD 0 C) x m M 0 > m tz 0 4t zz of the tenant or the amenities available to tenants Specific average rental figures for all bedroom sizes in multiple -unit, duplex and single family properties are provided in the tables below. Vacancy Rates - Multiple Units On August 1, 1993, the overall vacancy rate for multiple -unit properties in Stillwater was 1.8 percent. Vacancy rates were higher for the two bedroom units and were lower for the one and three bedroom units surveyed when compared to the county as a whole. The number of vacancies in Stillwater account for 8.8 percent of the total number of vacancies county wide. Special Notes Stillwater has 11.1 percent of the private rental market surveyed in Washington County. Stillwater is the home of three rent subsidized properties, containing 196 units (Victoria Villa 40 units, Charter Oaks 60 units and Rivertown Commons 96 units). Family Income for Twin Cities Metropolitan Area 1989 HUD Median Income Family of four 543,251 50 percent of Median Income $21,650 occupations with Median Annual Income less then 50 percent Teachers Aide $17,992 Retail Salesperson 310,920 Nurses Aide $16,515 Travel Agent $19,240 Bank Teller $15,309 Median Housing Value in 1990 Annual Income Required to Purchase New conslruCtion $120,200 $42.800 (99% of median) Existing housing 5 88,900 $33.000 [76°/ of median) Objectives, Policies and Programs Objectives: Residential Character /Housing Conditions 6 -7 Adopt housing /historic preservation regulations and performance standards to maintain the city's existing housing stock. Enforce the housing code to maintain the housing stock and ensure the health, safety and welfare of Stillwater residents. Enhance the livability of residential areas through development controls and the provisions of public facilities and services to meet the needs of the neighborhood. Maintain the mix of housing types and tenure in Stillwater's older residential areas. Establish or assist the Washington County HRA in the establishment of a housing rehabilitation program to maintain the existing older housing stock, maintain neighborhood character and the diversity and supply of moderate cost housing. Retain the unique and/or historic character of existing residential areas. Explore development concepts such as higher density infill, mixed use developments and cluster housing to maintain open space character and provide a mix of housing types. Preserve Stillwater's desirable small town character by planning residential development and the establishment of neighborhood character in new areas. Designate multifamily housing sites in areas with residential services include the Downtown. Special Housing Needs Support the provision of a supply of affordable housing for the elderly, physically and mentally handicapped and others with special housing needs who wish to live in Stillwater. Develop housing for a range of household income and age levels where local services are available. Work with the Washington County HRA to provide affordable housing for the elderly and families. New Residential Development Design local streets, in area plans and through subdivision design, to provide for neighborhood access and limit through traffic. Provide neighborhood parks for existing and new residential areas consistent with adopted park dedication standards and park plans. Provide for neighborhood convenience stores locations within walking distance of residential areas without negatively impacting those residential areas. Designate residential densities and housing types sensitive to natural resources and land conditions. Use the planned unit development process for reviewing innovative development concepts and protecting natural resource areas. Provide single family, large lot and small lot and attached housing in the URTPA. Policies and Programs Policy 1: Review city affordability housing needs and develop a method of better matching needs to supply. Policy 2: Maintain the city housing stock in good condition Policy 3. Support effects of Washington County Housing and Redevelopment Agency in providing assisted housing at appropriate locations. Policy 4: Attempt to disburse assisted housing throughout the community. Policy 5: Locate assisted housing near transit lines and public parks. Policy 6. Participate in Minnesota Housing Finance Agency programs that provide housing assistance. Policy 7. The city shall seek cooperation from local lending institution for financing improvements to older structures. 6 -3 Policy 8: The city shall participate in available housing rehabilitation programs. Policy 9: The city shall endeavor through the development design review process to maintain and enhance Stillwater's community character and housing quality. Program (1) Develop neighborhood housing rehabilitation programs to maintain the supply of affordable housing in good condition. Program (2) Explore using TIF and other funds to provide housing rehabilitation grants to very low and low income senior owner occupied housing needing rehabilitation assistance. Program (3) Consider establishing a housing presale code inspection program. Program (4) Consider establishing a low interest loan housing rehabilitation program for very low and low income homeowners. Program (5) Work with local lenders, Washington County HRA, MNHFA and other housing agencies to provide a comprehensive housing assistance strategy for households needing assistance. Program (6) Attempt to meet regional lifecycle housing goals for the City of Stillwater. Regional Lifecycle'Housing Goals y IndexYakBen`ard 'Goal - Cit Affordability,.,: Ownership _ _,74%11 .74 -8.6 %° ,.within range';; Rental 61% 52 -68 %a within'range* Lifecycle Type (nonsingle _ family detached) 28 % 29 -36 % within range* Owner /Renter mix 72128% (68 -77 %) .; = ..within range* (23 -32 %) , . within range* ; Density Single - family 2.6/acre 2.2-2.5/acre . within range *. ; detached.`.. Multifamily 15 /acre 13-14/acre : .within range* 'The City of Stillwater through its housing policy and actions will try to maintain its housing goals within the benchmark range. City of Stillwater Comprehensive Plan December 12, 1995 Local Economy The quality of life of Stillwater residents is directly related to the economic health of the local economy. Business activities provide tax revenue and job opportunities that help make it possible to have and enjoy the services and facilities demanded and expected by community residents. It is essential that in providing for commercial and industrial land uses that new and expended industries contribute to the design quality of the community, a major factor in maintaining the attractiveness of Stillwater as a place to live and work. Key Goals for Economic Development are- Goal 1: Increase the tax base and provide opportunities for economic growth for Stillwater and Stillwater area residents. Goal 2-. Promote and maintain the downtown as a central focus for community economic and cultural activity. Goal 3: Promote tourism consistent with retaining Stillwater unique natural resources and historic and architectural character. Goal 4: Provide new locations for job growth in close proximity to housing and with convenient access. It is difficult to consider the Stillwater city economy without first looking at Washington County and the Twin Cities metropolitan area economy. The Stillwater area comprises a major part of the Washington County economy. Using employment as a measure, Stillwater accounts for almost 40 percent of the county's employment base. In recent years, Stillwater area employment has been growing at a slower rate then county employment. The tables below shows past and 7 -1 forecasted employment growth for Washington County, the greater Stillwater area and the City of Stillwater: Economic Growth (.lobs) 1980-1990 1980 1990 Stillwater 5,700 8,397 47% Stillwater Area' 10,415 17.075 63% Washington County 27,600 43,576 57% 'The Stillwater area includes Stillwater, Oak Park Heights. Bayport, Lake Elmo, Stiltwater Township, Baytown Township and West Lakeland Township. Forecast Economic Growth [jobs) 1900-2020 1990 2000 20tC 2020 %I Stillwater 8,397 9,750 10200 10,400 23% Stillwater plan impact area 17.074 20,830 22.200 22.590 32% Washington County 43,576 55,020 62.150 63.500 45% Stillwater city employment as a percentage of Washington County employment is forecast to decrease from 20 percent in 1990 to 16 percent in 2020 according to the metropolitan council. Stillwater planning impact area employment will increase from 17,074 in 1990 to 22,590 presenting a 32 percent increase. As a percentage of Washington County employment the impact areas will decrease from 39 percent to 35 percent. City employment is forecast to grow by 1,800 employees during the 20 -year 1990 - 2010 planning period. Currently, 8,400 employees in the city occupy 250 acres of industrial and commercial land (this acreage does not include government employees.) Of the 8,200 employees, 2,500 were located in the West Stillwater Business Park (1990) and 2,338 in downtown Stillwater (1987). The table below shows land use and employment for the West Business Park. West Stillwater Business Park Land Use and Employment Source Was1 ShlAvater Business Park Plan. 1990, employer questionnaire The West Stillwater Business Park contains nearly 1.5 million square feet of commercial and industrial building floor space while the downtown contains approximately 800,000 square feet of commercial space. Adequate land area is provided in the city's comprehensive plan land use plan to accommodate forecasted employment growth. Currently there are 118 acres of vacant industrially or commercially zoned land in Stillwater. Most of this land is located in the West Stillwater Business Park (January 1994). According to the 1990 census, there are 10,627 workers who reside in Stillwater. Of that number, 6,014 or 57 percent work in Washington County while 43 percent commute out of the county to work. Two percent of city workers work at home. For the West Stillwater Business Park a majority of the 2,200 employees who work there live in Stillwater, 37.5 percent, while 480 or 22.5 percent live in Western Wisconsin, 458 or 20 percent live in Washington County outside of Stillwater and 385 or 18.5 percent live outside of Washington County not in Wisconsin. Almost 30 percent of city residents travel over 30 minutes to work. The number of city residents working outside of Washington County has increased from 1980 levels resulting in more reliance on the metropolitan areas for employment and increased travel demand. Local Economic Conditions According to The Stillwater Area Economic Development Strategy (1986) the following factors define the economic development environment of the Stillwater area and will affect new business 7 -2 locating in the area. Quality of Life - the high quality of life in the Stillwater area represents a potential for economic development in terms of the ability to attract people and investment into the community. However, this is a. strength which will require public investment and caution to maintain and preserve. Minnesota Business Climate - Minnesota has an image as a high tax state and one which the costs of doing business are higher than they could be - should be. For the Stillwater area this problem is compounded because neighboring Wisconsin is perceived as having a better environment for business. However, in pursuing economic development, the Stillwater area should accept the state's business climate as a "given" and emphasize the community's other assets and target activities accordingly. Labor Force - the community's productive, reasonably- priced labor force and the fact that there is a low level unionization also represent major strengths for economic development. Labor force considerations collectively are usually very important such as location factors for business. The community draws heavily from Wisconsin for its workers and at the same time, a high proportion of Stillwater area workers commute to the twin cities. Local Business Climate - the local business climate, including receptivity to and cooperation with new business and industry, is crucial to a successful economic development effort. An improved business climate in the Stillwater area is making it more attractive for economic development. While a cooperative approach is encouraged, it is important to think in terms of quality and facilitating economic development which is appropriate for the community. Proximity to the Twin Cities - the Stillwater's area's economic development efforts can benefit significantly because of the community's proximity Acreaq 0 Business 4Emabvees EmoloveelAC_ Light lnduslnal 36 4 924 26 ofbca- servrca 49 70 847 17 Retail 34 30 205 5 Residential 7 5 210 32 126 109 21% 18 Source Was1 ShlAvater Business Park Plan. 1990, employer questionnaire The West Stillwater Business Park contains nearly 1.5 million square feet of commercial and industrial building floor space while the downtown contains approximately 800,000 square feet of commercial space. Adequate land area is provided in the city's comprehensive plan land use plan to accommodate forecasted employment growth. Currently there are 118 acres of vacant industrially or commercially zoned land in Stillwater. Most of this land is located in the West Stillwater Business Park (January 1994). According to the 1990 census, there are 10,627 workers who reside in Stillwater. Of that number, 6,014 or 57 percent work in Washington County while 43 percent commute out of the county to work. Two percent of city workers work at home. For the West Stillwater Business Park a majority of the 2,200 employees who work there live in Stillwater, 37.5 percent, while 480 or 22.5 percent live in Western Wisconsin, 458 or 20 percent live in Washington County outside of Stillwater and 385 or 18.5 percent live outside of Washington County not in Wisconsin. Almost 30 percent of city residents travel over 30 minutes to work. The number of city residents working outside of Washington County has increased from 1980 levels resulting in more reliance on the metropolitan areas for employment and increased travel demand. Local Economic Conditions According to The Stillwater Area Economic Development Strategy (1986) the following factors define the economic development environment of the Stillwater area and will affect new business 7 -2 locating in the area. Quality of Life - the high quality of life in the Stillwater area represents a potential for economic development in terms of the ability to attract people and investment into the community. However, this is a. strength which will require public investment and caution to maintain and preserve. Minnesota Business Climate - Minnesota has an image as a high tax state and one which the costs of doing business are higher than they could be - should be. For the Stillwater area this problem is compounded because neighboring Wisconsin is perceived as having a better environment for business. However, in pursuing economic development, the Stillwater area should accept the state's business climate as a "given" and emphasize the community's other assets and target activities accordingly. Labor Force - the community's productive, reasonably- priced labor force and the fact that there is a low level unionization also represent major strengths for economic development. Labor force considerations collectively are usually very important such as location factors for business. The community draws heavily from Wisconsin for its workers and at the same time, a high proportion of Stillwater area workers commute to the twin cities. Local Business Climate - the local business climate, including receptivity to and cooperation with new business and industry, is crucial to a successful economic development effort. An improved business climate in the Stillwater area is making it more attractive for economic development. While a cooperative approach is encouraged, it is important to think in terms of quality and facilitating economic development which is appropriate for the community. Proximity to the Twin Cities - the Stillwater's area's economic development efforts can benefit significantly because of the community's proximity to the twin cities. Potential linkages with existing businesses and industries in the twin cities should be exploited. Also, the community should use its access to the resources of the twin cities as a major consideration in its strategy for economic development. Business Park - the Stillwater area principal "industrial park" is more of a mixed- use commercial park than a true industrial park. The land use plan shows a location for a new R & D office industrial park along TH 36 west of Stillwater. Economic Development Sites According to Metropolitan Council employment forecasts, Stillwater will grow from 8,400 employees in 1990 to 10,400 employees in 2020, an increase of 2,000 employees. Of this number, 330 are retail jobs and 1670 service and industry jobs. To accommodate this amount of growth in terms of land area, 33 acres of retail commercial land and 60 - 80 acres of industrial land is needed. These estimates are based on existing ratios of land area or building area per employee. The Metropolitan Council forecasts are low based on recent retail growth and the recent experience and opportunity for additional growth in the Market Place and surrounding areas. As of January 1, 1995, Stillwater has 60 acres of vacant industrially zoned land and 58 acres of vacant office and commercially zoned land. At current employment rates, this amount of land could accommodate 4130 employees, more employment then what has been forecasted. As with residential development, it is unlikely all vacant industrial sites will be developed. Some sites are held by companies for future expansion. Other sites do not have adequate facilities such as road access or utility and other sites are vacant but not on the market or on the market at such a high price that for all practical purposes are not available. Other vacant sites, 15.5 acres, are held by the city for a community facility. 7 -3 For these reasons it is critical to have an adequate supply of commercial and particularly industrial land available to accommodate growth. Local industrial growth in the past has come in spurts of large increases over a short time then no growth for a while. The proposed land use plan shows a research and development business park office (industrial) located along TH 36 west of CR 5. The R & D office park contains 65 acres of developable land and could accommodate 2000 - 3000 employees and generate a tax base of over $300,000 per year_ The timing and development of the R & D park area would depend on the land owners interest and TH 36 Frontage Road improvements. The designated office park is the only proposed facility of this type along TH 36 in Washington County. It is anticipated that if the R & D office park develops it will employee residents already living in the Stillwater area and reduce commuting to Twin Cities employment locations. Objectives: Support business expansion in the downtown commercial district and West Stillwater Business Park area. Provide local incentives to encourage clean light office type industrial development. Actively promote the creation of the R & D office park at the appropriate time along TH 36 east of CR 15. Cooperate with regional and local economic development organizations to promote the local economy. Policy 1: Designate land for commercial and industrial uses properly located with adequate support services to accommodate future forecast and anticipated economic development. Policy 2: Protect the city's industrial land base for industrial development. Policy 3: Assist local industries prosper and grow in the community consistent with the city's needs. Policy 4: Work with local and region economic development interest to promote local economic development. Program (1) Designate the Bergman fame area for research and development office industrial park as a part of the proposed land use plan. Program (2) Promote downtown as a location for light industrial uses compatible with existing activities and adequate facilities. Program (3) Work with Metro East, The Stillwater Chamber of Commerce and SAEDC to promote local industries. Program (4) Encourage small locally owned business particularly in the downtown. Program (5) Promote office and service job locations in and around the downtown. Program (6) Encourage a mix of employment, multifamily residential and retail and service activities in and around the West Business Park area. Program (7) Use tax increment financing to assist major new investment downtown and in the Stillwater West Business Park. Tourism It is estimated that tourism accounts for over 30 percent of overall business activity in Stillwater and over 50 percent of business activity in the downtown. Tourism is an important factor to Stillwater's economic viability. Recent years has seen the growth of the tourist industry downtown with the addition of overnight accommodations, dinner train and river boat excursions, antique dealers, used book stores and restaurant additions and expansions. Downtown community commercial type businesses such as hardware store, drug store, clothing stores have moving out of downtown to new community commercial areas along TH 36. There uses being replaced by speciality retail and tourist related businesses. To some, this trend is alarming but the trend is not unique to Stillwater and has been taking place in Stillwater since the 1970's when St. Croix Mall and 7 -4 the TH 36 commercial area first began to develop. To promote local tourism, the following objectives, policies and programs are proposed: Objectives Maintain Stillwater's historic, cultural and natural resources, community uniqueness. Support historic preservation efforts. Support tourism as a major basic city industry. Support public improvement that enhance the attractiveness of downtown. Maintain the downtown in an attractive well maintained condition. Policy 1: Attract visitors and shoppers to the downtown. Policy 2: Support activities that enliven the downtown public and cultural life_ Policy 3: Promote activities which lengthen the time visitors spend in the downtown. Policy 4: Reinforce the unique historic character of downtown. Policy 5: Maintain public facilities so that the downtown is an attractive place to visit- Program 1: Establish a room tax to fund visitor promotions and to promote tourism. Program 2: Consider establishing incentive programs for rehabilitation and upkeep of older buildings. Program 3: Continue to use design review guidelines and process to ensure new development and renovation is consistent with the historic character of downtown. Program 4: Reconstruct the levee wall and extend and improve Lowell park. Program 5: Construct a new public parking facility for employees and visitors at old UBC site, Second and Mulberry site, along Water Street and the west edge of Lowell Park. Program 6.- Support efforts to reuse or redevelop Maple island Dairy site. Program 7: Maintain the old territorial prison in its historic integrity for an adoptive reuse. Program 8: Support the Downtown Parking Commission as advisory group for managing downtown parking. Program 9. Support actions of the Stillwater area and City Chamber of Commerce in promoting downtown activities and improvements, Program 10: Consider installing decorative pedestrian street lights along Main Street and the downtown area. Program 11: Support new community commercial areas such as a grocery store or hardware store in downtown. From TM N-vr .Mrr+r -r M rrnmlrt by PcccrCalUveyc. 1°9—A Prv,=Lon Archf[ccmral Prcr». 7'J COMMERCIAL - ECONOMIC PROVIDE DESIGN GUIDELINES AND LANDSCAPING REQUIREMENTS FOR ALL COMMERCIAL - ECONOMIC DEVELOPMENTS. DUFFER FROM NON -COMMERCIAL USE5. PROVIDE FULLY LANDSCAPED PARKING AREAS. PROVIDE PEDESTRIAN PATHWAYS TO NE1GH130RHOOD CENTERS.. City of Stillwater Comprehensive Plan Parks, Riverfront and Trails December 12, 1995 Goal The Stillwater park system is characteristic of the city due to its early development and history. The initial parks plan was adopted as part of the first city plan in 1918 with the idea that well planned cities incorporate parks and green space for the benefit of its citizens. In recent years, the demand for recreational facilities and trails has increased. This is due in part to the need for "playfields" for organized activities such as soccer, football and baseball. These are community -wide needs which should be provided by the development of a community park system. Neighborhood parks are intended to provide recreational opportunities for the residents in the immediate residential area. These parks are important elements of the city's open space system and add to the identity of Stillwater's neighborhoods. Trails are increasingly in demand due to the popularity of walking, jogging, skiing, biking and rollerblading. With growth pressures for urban development, the need for preservation of open space areas and ravines have been identified as a key issue by the community. Stillwater is fortunate to own a majority of the St. Croix riverfront. These lands should be maintained and enhanced for the benefit of the citizens of Stillwater and visitors to the St. Croix Valley. Goal 1: Provide a variety of parks and other leisure, recreational and cultural opportunities that are area accessible, affordable, safe, physically attractive and uncrowded for all Stillwater residents. 8 -1 2: Enhance and expand existing recreational facilities for Stillwater residents based on the recreational needs of the community and its neighborhoods. Goal 3: Provide both passive and active recreational opportunities for Stillwater residents. Goal 4: Provide safe and accessible parks and recreational facilities. Goal 5: Work with other local governments, the school district and Washington County to develop a St. Croix Valley recreation and facilities plan. Stillwater's parks are a key component of the city's open space system and give identity to the various neighborhoods and the community. Parks can be differentiated from one another through variety of plantings, unique play structure, art/sculpture arrangement of sitting and picnic areas and types of organized play areas. An architectural theme and uniform signs or symbols can be used to tie parks together. Community parks serve a significant portion of the city by providing facilities and recreation activities beyond those supplied by neighborhood parks. These parks need to be planned for large -group activities. Parking, restroom facilities and picnic areas are key elements in the development of community parks. The future of the old athletic field and the Jaycee Ballfield will present a critical opportunity to add needed park space in fully developed neighborhoods. The city should obtain these sites from the school district if they become available and should prepare a plan for the park with neighborhood residents. Existing neighborhood and community parks are shown on the parks map. Objectives, Policies and Programs Parks Standards Objectives: Bring the amount of Stillwater's park land into compliance with the city's adopted minimum standards (community park land at 3 acres per 1,000 population and neighborhood park land at 7 acres per 1,000 population). Provide a balance of recreation opportunities, including facilities to serve the varied interest of the population. Designate adequate park sites for the future development of the city. Upgrade existing parks. Provide for an annual evaluation, maintenance and replacement of recreational facilities. Policy 1: The city shall require all new development to dedicate land or pay a park fee according to the park dedication policy. Policy 2: The city shall obtain and develop new public parks at a rate consistent with new residential development. Policy 3: The city shall develop community parks consistent with growth of the city's population. Policy 4: As a standard the city shall strive to provide park facilities within one- quarter mile or less of residents living within the residential areas of Stillwater without intrusion of major physical barriers. Policy 5: The city will provide recreation activity sites to respond to the needs of a diverse population. These needs include ravine systems, trailways for pedestrians, joggers and bicyclists and non - traditional types of recreation such as habitat restoration projects, community gardens and rollerblading_ Policy 6: The development of private sector recreation facilities in the appropriate locations shaft be encouraged. Policy 7. Joint local government development of community recreation facilities shall be encouraged. S -2 Policy 8. The city shall consider the needs of the elderly and handicapped when planning new or redesigning existing parks. Program (1) As a part of the neighborhood planning process inventory residential park needs and accommodate neighborhood park locations.. Program (2) The city shall study and pursue various means of funding the acquisition, operation and maintenance of park, open space trail, and recreation facilities. BASIC GUIDELINES FOR COMMUNITY PARK DEVELOPMENT u Population: A minimum of - three acres,; of community parks perJ1,000 piopulatidE. Location: Onan arterial. "',.(Coian unity Parks,are traffic generators and it is "city policy ;to_ iscourage through traffic in neighborhoods.) Design: Provide parking on -site. - Include' bikeways that connect to the city -wide bikeway system. Connect to the city's open space network.,; Promote safety, through`lighhnig and design that makes all parts of the park obs'eryAbko -the' driver of a patrol ear..Same.pati sJh'ould be" designed for use of patrol car as -Well' as for bicyclists; and pedestrians. Use: Address recreation 'needs . as ",determined through a periodic park user survey, city -wide analysis or through a joint powers effort with other communities. Program (3) Complete the River Front Park Master Plan which includes the Aiple Property and Kolliner Park, Program (4) Locate a community park facility in the Business Park area. Program (5) Acquire and develop land west of Long Lake in the URTPA area for community park purposes. Insure public assess and views of the lake and provide pedestrian paths along the Long Lake and Brown's Creek. Program (6) Coordinate city park development with school planning to support joint use of facilities. Efficient Use of Facilities Objectives: Maximize opportunities for the joint use of public land and facilities such as schools, detention ponds and area under the jurisdiction of other public agencies that have land available for possible recreation purposes. Maximize the extended use of existing public facilities for year -round and evening use. Policy 9: The city shall work with the school districts in identifying and evaluating the potential for park acquisition of school sites which might become surplus school lands. Because of the open space already associated with school sites, they are ideal sources of additional park land. A priority for the reuse of surplus school sites and existing athletic fields should be for park or recreation purposes. Program (7) Consider cooperative efforts with the school district public utilities and the city in order to develop parks, retain open space areas and recreation facilities and provide programs. The city will benefit by identifying recreation areas that are owned by school district or other public entities and seek permission to use those lands for recreation programs or facilities. Program (8) Develop a list of available public park facilities_ Periodically update and distribute this list to community groups. Program (9) Work with the school district to establish the joint use of land for park purposes at Washington School. Program (10) Develop and implement a program for year - around use of some recreation facilities. Program (11) Explore methods to implement the URTPA park and trail system with Stillwater Township and Washington County, Paris Location and Design 8-1) Objectives: Locate new neighborhood parks in areas not necessarily adjacent to schools in order to better distribute urban open space and to enhance neighborhood identity. This is especially applicable in the South Hill and Oak Glen planning areas. Design park and recreation facilities to serve the recreation and social needs of residents of all ages, economic situations and physical abilities. Design parks to enhance neighborhood identity and character as well as to serve recreation functions. Policy 10: Residential developments adjacent to parks or open spaces should be encouraged to provide direct access to and common open space contiguous with such areas. Policy 11: in considering the location and redevelopment of parks, the city shall select sites based on maximum accessibility, proper topography and visibility (for the safety of park users). Policy 12: The city shall promote private open space and recreation facilities in large -scale residential developments in order to meet a portion of the open space and recreation needs that will be generated by the development. Policy 13: In the design and maintenance of parks, consideration should be given to impacts on wildlife. in particular, it should be recognized that native plant species may be best suited for providing wildlife cover and food sources and that herbicides, pesticides and fungicides may be damaging to native plants and wildlife. Program (12) Establish a volunteer program to help maintain and enhance neighborhood parks. Add landscaping, sculptures and seating. Vary the landscaping, improvements and construction materials used in different parks to help establish park and neighborhood identity. Program (13) Use the development planning review process to provide private open space and recreation facilities. Program (14) Use subdivision regulations and the development review process to locate parks in central secure portions of subdivisions and to promote the safety of park users in the design of parks- BASIC GUIDELINES FOR NEIGHBORHOOD PLANS Population:., A minimum ,of =seven acres of neighborhood parks per,:1,000 population. Location: Located ,,near W:Jhe ='center of neighborhoods ,,ora near =a `distinctive 'natUraI feature such as 'a hill or waterway. A maximum service area radius of one- quarter mile. , . Not on arterial streets. Use bikeways and pedestrian pathways to provide access`to the parks from all adjacent residential areas: Identify sites' for parks at the outset of a given subdivision process rather than accepting a residual piece "'of land. Design: DifferentiateP,neighborhood .parks from each ,other through va�iety'in plantings, play structures;; use`of sculptuTe,,�arrangement of sittin :areas °ruse .yofv3water, :,variation "of terrain and facilities;proriided. u: Use neighborhood park location and design to create neighborhood identify in new areas. Promote safety of park users. Address recreation needs of the neighborhood as determined through specific neighborhood park planning process. Program (15) Establish a regular patrol of parks to provide for the safety of park users. Program (16) Create a park logo and a consistent design for park signs and furniture. Program (17) Develop neighborhood park plans based on the following priority list developed by the Park and Recreation Board. These plans will reflect the neighborhood input into the planning process. 3 -4 Park Improvement Priorities Neighborhood Parks Staples Field Schulenburg Park Sunrise Park Pioneer Park Triangle Park Meadowlark Park Washington Park Ramsey /Grove Park Northland Park Communily Parks Lily Lake Northland Park Program (18) Develop the plans and specifications for Lowell Park improvement as part of the implementation of the Lowell Park Plan. Program (19) Implement the Lily Lake Master Plan. Program (20) Schedule and budget park improvements through the Capital Improvement Program. Trails and Pathways The city is working with the metropolitan council, Washington County and private developers to establish a trail system in and adjacent to the City of Stillwater. The network will be part of the open space system connecting residential areas, neighboring communities such as Oak Park Heights, Bayport and Stillwater Township and provide access to the state trial system. The trails map shows proposed trailway locations. Objectives: Designate an extensive network of trails and pathway corridors. Preserve and provide visual access through trail location quality to landscapes. Provide alternative means to reach city parks, county parks, regional parks, state parks and other community destinations Ilwalter COMPREHENSIVE PLAN MnP. ------------- 1 soc�r�v +J 1 rrorrT+ i I 1" = 200' I ' �1 SWIM58AA -]H -1495, Insight Mapping & Demognphid, Inc. NEIGHBORHOOD PARK SERVICE AREAS PARK 1/4 MILE D IA.- s j ater Neighborhood & Community Parks L 1" = 2500- 11173195 S'WMOAAA - JH -1995, InelgM Mapping & Demographics, I— City of SdUwa*t Coy*++ mnity Development Depa=wnr. LEGEND: Neighborhood Parks ®Community Parks Water !� City Limits Expansion Area Limits Preserve and enhance public -owned ravines Maximize the city's recreation opportunities. Policy 14: Bikeways, hiking trails, equestrian trials, rest areas and picnicking accommodations should be provided within designated trail corridors, wherever feasible. Policy 15: The city should control land development along designated trails and pathway corridors in order to provide sufficient right of way and to ensure that adjacent new development does not detract from the scenic and aesthetic qualities of the corridor. Policy 16: When new development occurs adjacent to a designated trail and pathway corridor, the city should require the development to install and maintain the trails. Policy IT The design, construction and management of trails and pathways should be carefully planned and executed in order to minimize environmental disturbance. Policy 18: Public improvements within designated trails and pathways corridors should be designed to provide safe and secure routes for trials, including grade separation between roadways and trials whenever feasible. Policy 19: The city should promote cooperative interagency planning of pathways, bikeways and equestrian trails. Policy 20: Encourage the incorporation of trails and pathways into corridors used for public and utility purposes. Program (21) Implement the trails and pathways corridors plan. A Trails and- Patfilways Corridors Plan should include: All routes that will contribute to the open space and pathways system. The design' of bridges , and other public improvements to provide safe and secure routes for trails, including grade separation of roadways and trails whenever feasible. Timing and funding for trail and pathways improvements. Standard for construction to minimize environmental disturbance. 8 -5 A delineation of the, relationships,`among ^the city, the county,; pblic utilities acid �p;rivate developers who "are"'building ai3Jacent.tothe corridors network. =-```` Stillwater Riverfront In 1992, Stillwater prepared a master plan for the renovation of Lowell Park. This plan also included a preliminary study of other city owned riverfront properties including Kolliner Park and the Aiple properties. Objectives: Develop a park system along Stillwater's riverfront for the enjoyment of Stillwater residents and visitors. Preserve, enhance and restore Lowell Park based on its setting, recreational uses and historic integrity as contained in the adopted Lowell Park Plan. Preserve the natural environment of the Aiple properties and Kolliner Park while providing recreational opportunities as a part of the city's riverfront park system. The existing Stillwater /Houlton lift bridge will provide vehicular and pedestrian access to Kolliner Park. This is an important connection in the park system and should be saved. Policy 21. The city should develop a trail system to connect the Aiple property to downtown Stillwater and Kolliner Park. Policy 22: The land north of downtown along the St. Croix River should be acquired for park purposes. Policy 23: The city -owned Aiple property and Kolliner Park shall be preserved for park and river open space purposes. Program (22) Prepare detailed park plans for the riverfront properties based on the concept plans developed as part of the Lowell Park Plan before they become available for use (1992). Program(23) Renovate and expand Lowell Park (in phases as financing is available) according to the Lowell Park Plan. 111• `a�el� .COMPREHENSIVE PLAN mAP 1 tie •� ••• •• r 00 •� • MEJ •I -� � -�l 4 t � I � � ©c �I � � -1 I •± c�1 I •I :; ■� "�- ❑C�+�o �- 1, - 2200• • r • ; •• Y�■ �� • `� uuu ] �■ mm 0000 . ei Q . � 000�Ofl Tv I ^I 1 I IIIIr�IIII IIIrI •� -4r x LwRR ` l L�:K 10. JICI U_Ur .� n Joy- 0 all Fl .1 r • • i 4 V •/ • 0} Aff •'L - - — - ���ralraraw�i�i SWOQSSAA - JH - I995, Insight Mapping do Demographic. Inc- BIKE WAYS - PATHWAYS ■ ■ ■ STATE TRAIL • •: COUNTY TRAIL IIIIIIIII CITY STAIRWAY mmemm CITY PATHWAYIBIKEWAY •••••• CITY PATHWAYS .�r� LINEAR PARKWAY Program (24) Develop plans and specifications for Lowell Park. Program (25) Maintain the Stillwater/Houlton Bridge as a key link and pathway connection to Kolliner Park and other riverway park areas. t! Q {._ OFEM .r M PEDESTRIAN PATHWAYS PROVIDE PEDESTRIAN ROUTES CONNECTING ALL HOUSING UNITS TO NEIGHBORHOOD CENTERS. NEIGHBORH000 CENTERS TO ADJACENT NEIGHBORHOOD CENTERS, AND EVENTUALLY TO THE COMMERCIAL CORE (DOWNTOWN). PROVIDE PATHWAYS WITH ADEQUATE SIGNAGE, LANDSCAPING. AND MAINTENANCE PROGRAMS_ ROUTES TH'FOUGH PARKING LOTS OR AT THE REAR OF RESIDENTIAL (DEVELOPMENTS SHOULD BE AVOIDED., City of Stillwater Comprehensive Plan December 11, 1995 Historic Resources The preservation, protection and use of historic properties is a public necessity due to the importance of preserving Stillwater's character. In order to effectively manage these resources, the city has adopted five basic historic preservation goals: Goal 1: Safeguard the heritage of the city by preserving historic properties which reflect Sitilwater's cultural, social, economic, political, visual, aesthetic or architectural history. Goal 2: Protect and enhance the city's appeal and attraction to residents, visitors and tourists, using historic properties as a support and stimulus to business and industry. Goal 3: Enhance the visual and aesthetic character, diversity and interest of Stillwater. Goal 4: Foster civic pride in the beauty and notable accomplishments of the past. Goal 5: Promote the preservation and continued use of historic properties for the education and general welfare of the people of Stillwater. Objectives: Preserve the Downtown Stillwater Commercial Historic District and adjacent historic properties through the design review process and such other means as are available. Preserve and protect residential historic properties, including buildings, sites structures and districts. OR Preserve, locally designate historic structures and protect governmental and public buildings throughout the city. Conduct reconnaissance and intensive historic preservation surveys to identify significant historic properties in all historic preservation planning areas (HPPAs). Determine which historic properties identified by historic preservation surveys are eligible for National Register of Historic places or local designation. Preserve locally designated historic properties and those listed individually on the National Register of Historic Places. Preserve the Stillwater /Houlton Interstate Bridge. Develop building design standards and guidelines so new development will be compatible with the existing buildings. One of the most important visual elements of Stillwater's community /small town character is its historic resources. The 19th century commercial buildings, Victorian homes and churches set on the banks of the St. Croix River Valley makes Stillwater one of the most picturesque communities in Minnesota. These historic resources not only include buildings but structures, parks, old foundations and ravines. The City of Stillwater has established an active preservation program. The purpose of the program is to safeguard historic resources protect and enhance Stillwater's appeal and foster and promote preservation and continued use of historic sites. The city has a local historic designation process for identifying historic structures thereby 11�rater COMPREHENSIVE PLAN mAp STE SWDOSBAA -JH -1495, Insight !tapping & DcrnG!przphic9, Inc. COMMUNITY CHARACTER 1-119195 preserving their architectural as well as their historic importance. Presently, the downtown commercial historic district has been locally and nationally designated. The district contains 63 historically contributing buildings, sites and structures. The city also has numerous buildings listed on the National Register of Historic Places. The National Register of Historic Places is a listing of historic properties maintained by the National Park Service upon recommendation by the State Historic Preservation Office (SHPO) and the city. The following properties are listed on the national register of historic places: Hersey Roscoe house, 416 South Fourth Street Jenks, Austin house, 504 South Fifth Street Lammers, Albert house, 1306 South Third Street McKusick, Ivory house, 504 North Second Street Nelson School, 1018 South First Street St. Croix Lumber Mills /Stillwater Manufacturing, 318 North Main Street Sauntry, William mansion and recreation hall, 626 North Fourth Street Territorial Prison site and Warden's house, 602 North Main Street Washington County Historic Courthouse - 100 West Pine Street Webster, Mortimer house, 435 South Broadway Street Stillwater downtown commercial historic district, 63 sites, buildings and structures National Register sites and structures in the city are shown on the Historic Sites Map shown on the next page. Stillwater has a multitude of historic sites and structures not yet identified or designated. In order to evaluate structures of historic significance, historic contexts need to be developed which will provide the essential framework for targeting future survey work, evaluating significance of historic properties, organizing inventory dates and making decisions g_2 about which properties in the city are worthy of local designation. Implementing the Historic Contexts The implementation program for preservation of the city's cultural resources include: Policy 1: Designate historic contexts as the official overview of the history and development in the City of Stillwater. Policy 2: Conduct historic preservation surveys based on the historic contexts to identify and evaluate the significance of all historic properties within the city limits. Program (1) Historic preservation planning areas shall be developed as defined for the purposes of conducting historic preservation surveys (reconnaissance, followed by intensive identification and evaluation activities) of Stillwater neighborhoods, as outlined by the HPPA as follows: 1995: North Hill Original Town HPPA 1996: South Hill Original Town HPPA 1997: Sabin HPPA 1998: North Hill HPPA 1999: Greeley HPPA 2000: South Hill HPPA 2001: Dutchtown HPPA 2002: Stapes HPPA 2003: Schulenburg HPPA 2004 and beyond: Forest Hills, Lily Lake, Sunny Slope, Fairmeadows, Forest Hills, Croixwood, Oak Glen and Deerpath HPPAs. These surveys may also be done by combining areas in a specific year in order to conduct the survey in a timely manner. The preservation planning goals for all ten historic contexts will be taken in to consideration during ler COMPREHENSIVE PLAN Ma.P 5WW5AAA - JH -1995, Insight Mapping & Demographics, Inc- NATIONAL REGISTER SITES 1, OLD STONE BRIDGE 2. TERRITORIAL PRISON SITE AND WARDENS HOUSE 4. DOWNTOWN HISTORIC COMMERCIAL DISTRICT LIFT BRIDGE 5. COURTHOUSE 3. STAPLES MILL 6. NELSON RESIDENCE SCHOOL these surveys. Policy 3: The city will continue to review site alteration permits for the downtown commercial historic district, the downtown plan area and such other locally designated districts and properties in order to assure the preservation and restoration of historic properties. Policy 4: The city will advocate for the preservation of the StillwaterlHoulton Interstate Bridge. Policy 5: The city and other citizen advisory groups will coordinate local efforts to preserve and protect cultural, natural and historic resources in the community. Policy 6: The Heritage Preservation Commission will work to educate the community at large on the cultural values and economic benefits of historic preservation. Policy 7: The city will develop new standards for public improvement projects (i.e., streets, sidewalks, lights, utilities) which will be sensitive to historic neighborhoods. Policy 8. The plan for preserving Stillwaters historic resources will be developed in accordance with the Secretary of the Interior's Standards for Preservation Planning. Historic contexts have been developed which present an overview of the important themes in Stillwater history. These ten broad contexts can be used to evaluate properties as to their significance both at the local level and those that may be eligible to the National Register of Historic Places. Historic Context I Pre - contract period Native M Historic Context VII Late 19th century and early 20th century industrial Historic Context Vill Development of downtown Stillwater Historic Context IX Development of residential neighborhoods in Stillwater Historic Context X S t i l l w a t e r City, Washington County and state government Reconnaissance and intensive historic preservation surveys are used to evaluate historic structures, sites, districts and neighborhoods. These surveys not only evaluate the properties but also documents and photographs the areas. This level of detail and documentation on each property will also be a great asset to the St. Croix Collection at the Stillwater Public Library. This collection has been a great reference for residents seeking and learning historical information on not only Stillwater's history but their own homes and family histories. Program (2) Design guidelines and preservation and restoration regulations shall be developed and adopted. Program (3) The city shall locally designate those properties worthy of historic preservation. Program (4) The city shall develop a building renovation grant or loan program to assist in the rehabilitation and restoration of historic properties. Program (5) The city shall develop a demolition ordinance that requires review of structures of historic potential or historic significance. American Historic Context II Native American, European contact and initial Euro- American Historic Context iII Stillwater and St. Croix Triangle Lumbering Historic Context IV Stillwater town planning and development Historic Context V The St. Croix River, railroads and overland transportation Historic Context VI Stillwater and the late 19th century agricultural development M Historic Context VII Late 19th century and early 20th century industrial Historic Context Vill Development of downtown Stillwater Historic Context IX Development of residential neighborhoods in Stillwater Historic Context X S t i l l w a t e r City, Washington County and state government Reconnaissance and intensive historic preservation surveys are used to evaluate historic structures, sites, districts and neighborhoods. These surveys not only evaluate the properties but also documents and photographs the areas. This level of detail and documentation on each property will also be a great asset to the St. Croix Collection at the Stillwater Public Library. This collection has been a great reference for residents seeking and learning historical information on not only Stillwater's history but their own homes and family histories. Program (2) Design guidelines and preservation and restoration regulations shall be developed and adopted. Program (3) The city shall locally designate those properties worthy of historic preservation. Program (4) The city shall develop a building renovation grant or loan program to assist in the rehabilitation and restoration of historic properties. Program (5) The city shall develop a demolition ordinance that requires review of structures of historic potential or historic significance. City of Stillwater Comprehensive Plan December 12, 1995 Public Facilities and Services The public facilities sections considers city utilities and city buildings needed to support city services. The Stillwater City Water Department is a separate entity but they are a city utility and are discussed in this section. City parks are considered in the parks, open space and trails section of the plan. Goals Goal 1. Efficiently provide quality city utility services at a reasonable cost. Goal 2. Make sure there is adequate supply or capacity of service to accommodate future development. Goal 3. Develop water resource conservation measures to preserve the Jordan aquifer as the city's only long -term source of water. Goal 4: Remodel existing city hall to meet the city's anticipated staffing and meeting needs through the year 2020. Goal 5: Construct a shared public works /parks garage and maintenance facility adequate to meet current needs and expandable to meet potential future needs. Goal 6: Provide new facilities that meet the needs of Stillwater residents first. Allow other units of government; school district, Washington County or joint powers groups to serve broader area -wide populations. Goal 7: Expand the fire and police department facility preferably at the current downtown 10 -1 location. Street Maintenance The city has over 70 miles of city streets. Many of these streets are in need of major repair, some need to be improved to city standards while others need general improvements and routine maintenance. As with city streets, sidewalks, storm sewers and curbs and gutters also need to be improved or reconstructed. The city also has infrastructure such as sanitary sewers and water mains which need to be reconstructed and installed in areas throughout the community. Pavement Management Study In September 1990, a pavement management study was prepared by the city's engineering consultant. The study identified the general condition of city streets, sidewalks and curb and gutters. It also identified maintenance problems and prepared a cost ratio program to assist the city in prioritizing street maintenance and improvement projects. The study was never adopted by the city. However, a sealcoat, crack filling and patching program has been implemented based on the recommendations in the report. An assessment policy for public improvements was adopted in 1993. The city is now in the process of preparing public improvement projects for reconstruction of the following streets: South Sixth, Mulberry, William, Sherburne, Northland and Pine west of Greeley Street. In the next few years, MnDOT may require all communities to have an officially adopted pavement management program. No water and Sewer Areas Some areas of the city do not have water and sewer services. See city facilities map. Existing Public Facilities City Hall Stillwater City Hall, constructed in 1966, is located at 216 North Fourth Street. The building size is approximately 13,043 square feet. The service area for the city is the City of Stillwater. There are five departments, excluding fire and police, housed at city hall. The total staff size of these departments is twenty- three, full time employees. These departments include finance, public works, administration, planning and inspection. The finance department has four, full -time employees. This department is responsible for all finance and accounting matters. These include: Accounts payable; payroll; utility billing; tax increment financing (TIF) revenues; insurance; billing for services; bonding; development agreements; recycling /garbage contracts; investments; financial reporting; and many other related issues. The public works department has a staff of twelve, full -time employees. The general responsibilities of this department involve the maintenance of streets and sewers, including snow removal. There are three, full -time employees in the administration department. City administration is responsible for ensuring the effective implementation of and conformance with city policies, procedures and directives are established by the Stillwater City Code. The community development department has total of two -and -a -half, full -time employees. Thee is a community development director, city planner and a secretary for the department. General responsibilities of the planning department include: zoning; administration; economic development; historic preservation; housing; preservation of open spaces and many others. There is a total of two- and -a -half, full -time employees in the building inspection department. This includes a building inspector, assistant building inspector and a secretary whose time is shared with the planning department. The responsibilities of the inspection department is to provide routine inspections of all residential and commercial buildings in the city. Fire Department The fire department is located at 216 North Fourth Street next to the city hall. The approximate square footage of the fire station is 8,250. Their staff includes seven, full -time employees and thirty volunteers. The fire department's primary service area is the City of Stillwater. They also have contracts with Stillwater Township, about two- thirds of Grant Township and half of May Township. There are approximately 25,000 people in the sixty -plus square mile service area. The department has a class three rating which makes it the highest rated in the St. Croix Valley. This rating means that they have the ability to reduce the risk of loss for commercial and residential property. Police Department The police department is located at 212 North Fourth Street to the side of city hail. The staff includes nineteen, full -time employees and nine - part time employees. The service areas of the police department is the City of Stillwater. 10 -2 ( i 0 111' ter COMPREHENSIVE PLAN Mnr. SWW5AAA - ]H -1995, Insight MUppIng & Deuwgcaphics, Inc. WATER - SEWER SERVICES AREAS WATER ONLY -SEWER ONLY ........... _ ....NO WATER OR SEWER Water Department The city water department is located at 204 North Third Street. The staff consists of two supervisors and four support employees. The water building and one pump house are located on the site. The city has one water tower on Northwestern Avenue, one water tower on West Willard Street and one underground reservoir and five pump houses at the following addresses: 1013 North Owens Street (now used as a storage facility); 1320 South Fourth Street; 1304 West Olive Street; 845 Sunrise Avenue and 1850 Tower Drive and 1800 West Orleans Street. The service area for the water department includes the city as well as 25 homes outside of and adjacent to the city boundary. The municipal water source is wells. The storage capacity is 1,750,000 gallons and pumping capacity is 5,200 gallons per minute. Average demand of water service is 1,523,000 gallons per day and peak demand is 4,000,000 gallons per day. The conservation and emergency management plan describes in detail, water system conditions and capacities. City Garages The streets garage and north shed garage are located at 216 North Fifth Street. The main use of these buildings is for maintenance and the storage of machinery. The approximate land area for these two garages is 38,862 square feet. Sewer Service Sanitary sewer service is provided by Metropolitan Waste Water Control Commission. The capacity of the treatment plant is 3,200,000 gallons per day. Average demand of sewer service is 2,400,000 gallons per day and peak demand is 4,032,000 gallons per day. There are areas within the city that do not connected to city sewer. These areas are shown on the map which is included Stillwater Public Library The central part of the Stillwater Public Library was constructed in 1902 with funds from the Carnegie Foundation. Two wings were added on in 1973 with funds from the Margaret Rivers Foundation. In 1987, a reorganization and renovation of the building was completed. The library has a staff of ten, full -time employees. . The primary service area of the library is the City of Stillwater. There are over 8,000 residents registered at the library. Its secondary service area includes Oak Park Heights and parts of Stillwater, May, Grant and Baytown townships. Estimated library attendance for 1992 was 140,000. Circulation of material for 1992 was 227,323 and has been growing at a rate of 4 percent during 1993. The library has a very large number of holdings available to the public. The holdings for 1992 included: 62,000 books 1,600 audio discs 1,100 audio cassettes 500 compact discs 1,200 video cassettes 100 multimedia kits current subscriptions with back files of 256 The library also offers a number of services as listed below: Reference and information service A children collection with story times Readers advisory services A collection with staff featuring Stillwater and St. Croix Valley history Programming for children, young people and adults A computerized union catalog of all the public libraries in the county Reciprocal borrowing throughout the seven - county 10 -3 ater .-------- - - - --- t � I . t t t l 1 I t t 1 P t I COMPREHENSIVE PLAN MAp . 1 IL SWU05BA.A - iii -1995. irnei¢ht .Mannine & DemoO-anhim inc. EXISTING PUBLIC FACILITIES X. CITY PUMP HOUSE 2. WATER STORAGE TANK 3. CITY DUMP 4. LILY LAKE ICE ARENA I W jI 5. PARKS BUILDING 6. CITY HALL 7. WATER DEPARTMENT S. LIBRARY 9. GARAGE metropolitan area A library card that is honored at most public libraries in the state Meeting, conference and study rooms Lily Lake Ice Arena The Lily Lake ice arena facility was constructed in 1971 and is located at 1205 South Greeley Street. Since that time, there have been various improvements and maintenance work done on the arena but no major additions of any sort. The building is 125 feet wide and 239.5 feet long and the size of the ice is 200 x 85 feet. The arena has seating capacity of 787. In 1992, the arena's staff size was two, full -time and twelve, part -time employees. The primary service area of the Lily Lake ice arena is the City of Stillwater. It also services all of Washington County including Mahtomedi, Tartan Park and the township areas. Primary users of the facility include the St. Croix Valley Hockey Association, Tartan Park and Mahtomedi Youth Hockey, Stillwater Senior High Hockey Team four "old timer" hockey leagues and the public. During the dates from November 15 through March 15, there is anywhere between 12 to 2,000 skaters a weekend who use the ice arena. Parks Department The parks building is located at 1372 South Greeley Street. The parks department has five, full -time staff members. During the summer months two to four part -time employees are hired. There is many uses of the parks building. It is used as an office, garage, storage facility, meeting place and where maintenance work is done. The parks department is responsible for maintaining a total of 154 acres of city parks and open spaces areas, among many other things. They also maintain: Four to five miles of city -owned sidewalks Provide weed control on streets and boulevards Trees and shrubs put in by the downtown council Tree trimming Maintain library and city hall grounds Shrubs around parking lots All city steps URTPA Water and Sewer Service As a part of planning for growth of the city, a comprehensive sewer plan amendment has been prepared. The comprehensive sewer plan is a requirement of the Metropolitan Council to ensure that sewer service capacity and trunk line locations are adequate to accommodate planned growth. Based on proposed land use, there is adequate capacity to accommodate growth through 2020 and beyond. The existing trunk sewer line is located at Neal Avenue south of McKusick Road and CR 12. A second line is located just west of DR 5 at Curve Crest Blvd. From there, lines would be extended to development areas to the north and south as shown on the trunk sewer line map. From Neal Avenue the south sewer line would run along a low wetland areas west of Neal Avenue to Boutwell and from Boutwell to CR 12 in part on a city owned property. Easements would be obtained from private property owners in the township for a portion of the line. No services or service cost would be charged to township residents not receiving services in these areas for extension of the sewer or waste lines. From CR 12 south the trunk sewer line would be located along Long Lake or in street right -of -ways. The lake location of the line could accommodate a recreational trail along Long Lake. This trail would also be used to provide access to maintain the sewer line. If a lake location is chosen, special construction methods would have to be 10 -4 used to minimize the impact of the installation on the wooded and sloped lake shoreline area. Sewer and water service to the proposed research and development business park south of North 62nd Street and residential areas east of Long Lake would be provided by water and sewer lines located west of CR 5. The costs for sewer and water line extensions will be paid by the developer and users of the service through rate assessment charges and connection fees. The city would pay for "oversizing" of the sewer system to accommodate possible future development. Water services can be extended from several city locations to accommodate growth in the area. A new water tower and wells preliminarily located just south of Boutwell and east of CR 15(because of elevation consideration) will be needed before development north of McKusick Road can be accommodated (see water line map). The cost of the tower and well is paid by the city through its rate structure. Policies and Programs Policy is Review city-wide needs for city facility maintenance and new construction improvement and program those improvements in a capital improvements program. Policy 2: Coordinate public facility improvements with preparation of neighborhood plans, i.e., special streetscapes, neighborhood parks, sidewalk or trail improvements. Policy 3: Extend city water and sewer services to all areas of the city (with the exception of the residential area north of TN 96). Policy 4: Do not provide water and sewer services to non - urbanized areas. Policy 5: Coordinate the provision of urban services: water, sewer, storm sewer policy, police and fire protection with adjacent local governments to provide more efficient services and save costs. Policy 6: Plan for the phased expansion of public services and facilities consistent with the growth and expansion of the URTPA. 10-5 Policy 7. Work with school district to plan for future school facilities while maximizing the use of existing facilities. Policy 8: Coordinate orderly annexation and extension of municipal urban services with comprehensive plan proposed land use. Policy 9: Extend city utility services in the URTPA in ways that do not eliminate long -term options for future use. Program (1) Develop city storm water management. Program (2) Develop ravine management plan and balance the need for the ravines between natural resource protection, public utility and open space /recreation opportunity. Program (3) Implement pavemenl and sidewalk management programs for the existing city. Program (4) Implement a conservation and emergency management plan for City of Stillwater City of Stillwater Comprehensive Plan December 12, 1995 Fiscal Impact This analysis calculates fiscal impacts associated with the proposed land- use alternatives A -2, F -3, and E -2 described in the Draft Comprehensive Plan Report. The alternatives treat the existing city similarly but proposed different intensities and areas of development in the URTPA area. The fiscal information used in this analysis was derived from two sources- first, a study of the City's budgets and audits, including both revenues and expenditures, from 19$$ to 1993; and current State property -tax regulations and local aid disbursements. Many of the underlying policy assumptions -- for example, that the City will not dramatically expand services but will instead focus on maintaining and improving the quality of existing services and responding to changing demand -- were developed and confirmed by the City Council as part of the planning process. Other assumptions used in completing this analysis were made conservatively -- that is, to underestimate revenues and overestimate expenditures. For example, state aid to local governments is assumed to decline to about half its present level. As a result, the primary analysis indicates the "worst- case" fiscal outcome for each of the land -use alternatives. This analysis is followed by a series of sensitivity analyses that test each of the major assumptions. Basic Population and Household Data The number of residential properties (or the number of households) that will occupy a given area determines how much tax revenue that area will produce. Similarly, the size of the population that will be generated by each land -use alternative determines the demand for City services and, hence, for budget expenditures. These two data sets are therefore critical to determining the fiscal 11 -1 impacts of growth and annexation. Table 1 shows anticipated growth in the number of housing units (i.e., households). These figures were derived from actual plans submitted by owners of the largest parcels of land in the potential annexation areas. The column labeled "Within City" refers to anticipated increases in population and households within the current City boundaries, regardless of what occurs in the URTPA. (Refer to land use section maps for visual representation of land use alternatives A -2, E -2 and F -3.) Table 1, Anticipated Increases in Number of Single- Family Residential Units Table 2. Anticipated increases in Population (Households) Assumev Hausehotd Size =1.65 persons Land Use Alternative Lund !!Ye .41remarive A -2 E -2 F -3 Within ON A Semi -Rural (0.1 -0.2 Mac) 25 266 50 0 B Large -lot (2.0 DU/ac) 455 10 385 70 C Small -lot (4.0 DU/ac) 655 0 605 136 D Attached (5.5 DUIac) 290 40 190 308 E Multifamily (12.0 DU/ac) 0 0 0 250 F Total Increase' 1,425 316 1,230 (G)764 H Increase in Township' 25 266 50 2.238 5,232 1 Existing Township, To Be ' F -A +G +I Annexed 203 30 30 1 Net Increase in Township' 179 (336) 20 K Increase in City' 2,367 944 1,974 'B +C +D+£ 'Same as A 'H -I 'F +G+I -H Table 2 shows the corresponding population growth, based on the household sizes (persons per household) found in the City of Stillwater today. Anticipated Tax Revenues Table 2. Anticipated increases in Population Assumev Hausehotd Size =1.65 persons Lund !!Ye .41remarive A -2 E -2 F-3 Within Ciry A Semi -rural 66 705 132 0 B Large -lot 1,206 27 1,020 186 C small -lot 1,736 0 1,603 360 D Attached 769 106 504 816 £ Multifamily 0 0 0 0 F Total Increase 3,777 838 3.259 (G)2,025 I £listing Township, to he Annexed 538 80 80 K Increa5e in City' 6,274 2.238 5,232 ' F -A +G +I Anticipated Tax Revenues Single - Family Residential Tax Capacity and Revenues In the State of Minnesota, property -tax calculations are based on tax capacity, which in turn is loosely related to market value. Table 3 shows the tax capacities of five representative properties, one in each land -use category. Average values are based on estimates of construction value submitted to the City by landowners and developers for specific parcels that may be affected by annexation. Estimated market value (EMV) equals about 90% of actual market value (AMV). Single - family residential (homestead) tax capacity equals 1 % of first $72,000 of estimated market value plus 2% of remaining value. The tax capacity of multi - family residential (in buildings of 4 or more units) is 3.4% of the total EMV. Table 3. Tax Capacities of Representative Residential Properties $2,375,100 AMV EMV Capacity Calculation Tax Capacity Semi -rural 330,000 297,000 720 +(A2 x 225,000) 5,220 Large-lot (0.5 -ac lot) 330,000 297,000 720 +(.02 x 225,000) 5220 Small -lot (0.25 -ac lot) 170,000 153,000 720 +(,02 x 81,000) 2,340 Attached (0.13 -ac lot) 130,000 117,000 720 +(.02 x 45,000) 1,620 Mulb- family 80,000 72,000 .034 x 72,000 2,448 Table 4 shows the anticipated increase in the area's total tax capacity under each alternative, where Total tax capacity = property tax capacity x number of properties This table assumes that 100% of the single - family properties will be homesteaded. Table 4. Residential Tax Capacity Land Use Altemative AL2 E=2 FF =3 Within City Semi -rural & large -lot $2,375,100 52,200 2,009,700 365,400 Small -lot 1,532,700 0 1,415,700 318,240 Attached 469,800 64,800 307,800 498,960 Apartments 0 0 0 612,000 Total 4,377,600 117,000 3,733,200 1,794,600 Annexed from Twp 475,020' 70,200' 70,200' Total increase in City $6,647,220 51,981,800 S5,598,000 Existing units to be annexed assumed to have average value of 5170,000. Because it is unrealistic to assume that 100% of all single- family properties will be homesteaded, 11 -2 Table 4a shows how tax capacity increases when 5% of the large- and small -lot single- family and 25% of the attached single - family properties are non - homesteaded. Table 43. Tool Residential Tax Capacity Extent of homesteading: 95'5 of large- and small -lot. 75%, of attached. Apartments unchanged. Land Use Alternative A -2 E_2 FF3 Within City Semi- ruralAarge -lot 2,493,855 52,200 2,110,185 383,670 Small -lot 1,609,335 0 1AB6,4B5 334,152 Attached 587,250 81,000 384,750 623,700 Apartments 0 0 0 612.000 Total 4,690,440 133,200 3,981,420 1,953,522 Annexed from Twp 498,770 73,710 73,710 Total Increase in City 7,142,732 2,160,432 6,008,652 Table 5 shows the distribution of new tax revenues to the City and Township under each alternative. The City tax rate is 29.626% of tax capacity. The Township tax rate is 18.084% of tax capacity. Table S. Distribution of New Residential Taxes to Township and City Land Use Alternative Within City A -2 E__2 F^3 Only Taxes to Township (575,323) 99,867 8,463 Increased City Taxes 2,116,106' 640,050` 1,780,123' 578,750 'includes' Within City" increment Table 6 shows the tax impacts of annexation on each type of property. The first three columns show the gross tax liability of each property. In fact, however, state aid to local governments now pays about 40% of this liability. Therefore, the true tax impact on each property is somewhat less. For this study, we have assumed that state aid will cover only 20% of the local tax liability. Total taxes in City = 127.465% of gross tax capacity Total taxes in Township = 114.676% of gross tax capacity Gross increase = Increase in taxes assuming no local aid payment Net increase = Increase in taxes absent local aid payment from state; assumes that this aid will pay 20% of property tax load (1993: 40.3 %; however, some forms of local aid have been frozen and may decline). Table 6. Tax Impact of Annexation on Representative Single - Family Properties Tax Bill Tax Bill AMV in Township in City Gross Increase Net Increase S330,000 5,916 6,654 738 590 5170,000 2.683 2,983 300 240 $130,000 1,858 2,065 207 165 Commercial /Industrial Tax Capacify and Revenues Commercial and industrial development have tax capacities equal to 3.0% of the first $100,000 of EMV and 4.$% of the balance. As before, we assumed that EMV equals 90% of AMV. The industrial property value used for these calculations is $400,000 per acre (improved, with buildings, or about $9.20 per square foot total). Four different parcels sizes are assumed to be representative: 10, 5, 2.5 and 1 acres. For neighborhood commercial property, the value used is $350,000 per acre (improved, with buildings) and a property size of 1.5 acres is assumed. These are very conservative value estimates, in light of recent construction. Table 7 shows the tax capacities of commercial properties. Table 7. Commercial and Industrial Individual Property Tax Capacities AMV EMV Caoaaty Calculation Caoa&ty Commerciat 1.5 ac 525.000 472,500 3.000 + (.046 x 372,500) 20,135 Induslnal 10 0 ac 4,000,000 3,600,000 3,000 + (.046 x 3.500,000) 164.000 lnduslnal 5.0 ac 2,000.000 1,800,000 3,000 + (.046 x 1,700.000) 81.200 Induslnal 2.5 ac 1,000,000 900,000 3,000 + (.046 x 800,000) 39.e00 Industrial 1.0 ac 400,000 360,000 3,000 + (.046 x 260.000) 14.960 For the purposes of conducting this analysis, a mix of property sizes was assumed for each alternative. These mixes are shown in Table 8. Their tax capacities and property -tax contributions appear in Table 9. Table S. Commercial and Industrial Mixes in Fire- Protection Fees Land Use Allemallve A -2 Land Use Alremalive A -2 E_2 A -2 E -2 F -3 Within City Commercial 1.5 ac 3 0 3 36 Industrial 10 ac 1 1 1 1 Industrial 5 ac 2 2 2 2 Industrial 2.5 ac 12 12 12 10 Industnal 1 ac 15 15 15 9 Total properties 33 30 33 29' Total acreage, commind'I 4 5165 0165 4.5165 2712215' 1 1 -3 'Assumes only 50% buiidoutlimprovement due to inefficiencies in reuse. Table 9. Total Commercialllndustriat Tax Capacity and Revenues Summary: Anticipated Tax Revenues Table 10 summarizes the results of the City's tax revenue analysis. Table 10. Anticipated Tax Revenues to the City of Stillwater AA =2 E_2 F_3 Within City Only Residential 2,116,106 640,050 1,780,123 578,750 CommerciaViindustnal 535,115 517,220 535,115 212,545 Total taxes to City 2.651.221 1,157,270 2,315.238 791.296 'indudes'Wlthin City" increment Adjustments to Anticipated Property Tax Revenues Properties in the developing area now pay the City fees for fire protection. Once annexed, they will no longer pay these fees (a net revenue loss), because the cost of this service will be part of their tax bills. Therefore, fire- protection fees now being charged to properties proposed for annexation must be subtracted from the anticipated tax - revenue increase from those properties. Table 11 shows the impact of these fees on anticipated revenue increases due to annexation. Table 11. Adjustment in Tax Revenues Due to Changes in Fire- Protection Fees Land Use Allemallve A -2 E -2 A -2 E_2 F -3 Within City Only Commercial 1.5 -ac 50,450 0 60,405 352,430 Industrial 10-ac 164,000 164,000 164,000 0 Industrial 5-ac 162.400 162,400 154,000 81,200 Industrial 2.5 -ac 477,600 477,600 477,600 199,000 Industrial) -ac 224,400 224,400 224,400 74,800 Total Tax capacity 1,088,805 1,028,400 1,088,805 717,430 Total taxes to City 322,569 304,674 322,569 212,546 Summary: Anticipated Tax Revenues Table 10 summarizes the results of the City's tax revenue analysis. Table 10. Anticipated Tax Revenues to the City of Stillwater AA =2 E_2 F_3 Within City Only Residential 2,116,106 640,050 1,780,123 578,750 CommerciaViindustnal 535,115 517,220 535,115 212,545 Total taxes to City 2.651.221 1,157,270 2,315.238 791.296 'indudes'Wlthin City" increment Adjustments to Anticipated Property Tax Revenues Properties in the developing area now pay the City fees for fire protection. Once annexed, they will no longer pay these fees (a net revenue loss), because the cost of this service will be part of their tax bills. Therefore, fire- protection fees now being charged to properties proposed for annexation must be subtracted from the anticipated tax - revenue increase from those properties. Table 11 shows the impact of these fees on anticipated revenue increases due to annexation. Table 11. Adjustment in Tax Revenues Due to Changes in Fire- Protection Fees A -2 E -2 F -3 Wlh,n City Only Tclal taxes to City 2.651.221 1,157,270 2.315.238 791,296 Change in 6re•servixa contract .47,528 -1,206 •24,904 0 Net Total Tax Revenue to City 7,607,943' 1,158,06• 2,290,734• 741,298 'ircludes'Wnh+ City - inclement Anticipated Increase in Expenditures Three important sets of assumptions were made for the sake of this analysis. The first has to do with the relationship between per - capita expenditures and the City's budget; the second with the relationship between cost of service and land use; and the third with the level of state aid to local governments. These are described below. As before, assumptions are on the conservative side -- that is, to overestimate expenditures and underestimate revenues. According to the audit of the 1991 City budget, Stillwater spent approximately $1,025 per capita annually. This figure includes all expenditures associated with servicing capital debt. Inflating this to $1,050 to account for the three -year differential, and multiplying by the approximate 1994 population of 15,000, yields estimated annual city expenditures of $15,750,000. Annual expenditures per household equal $2,782. Within the existing City boundary, this level of expenditure accounts for all service costs -- that is, the costs of providing services to all residences and all non - residential properties. Services provided to commercial and industrial properties are limited primarily to water and sewer service, solid waste collection, street maintenance, and police and fire calls. Businesses that use City parks usually do so on a fee - for -use basis. Other services, such as inspections and licenses, are usually paid for through fees. Therefore, taken alone, each non- residential acre costs less to service than a comparable acre in residential use. In assessing fiscal impacts in the developing area, either of two methodologies may be used. The first would be simply to assume throughout the analysis that: (1) a household in the developing area will consume the same amount of services that a household within the existing City limits does. Principal weakness: Households in the 11-4 developing area will consume more park capital (because they need a new park and trails) and more street capital (because some streets must be brought up to City standards) for the first fifteen years, until the associated capital debt is paid off. This can be adjusted for by calculating actual street and park costs within the developing area and adding an expenditure increment from each household's cost. (2) in total, commercial and industrial properties in the developing area will consume the same amount of services relative to residences as commercial and industrial properties within the City limits do relative to residences within the City limits. Principal weakness: The same 70 acres of commercial and industrial property is present whether the residential area to be annexed is 50 acres or 9,000 acres. This can be adjusted for only by applying slightly different methodologies to each of the alternatives, based on its idiosyncrasies. Methodolo ies Used to Estimate Expenditures Related to Annexation (1) Alternative A -2 and infill within the existing City limits represent essentially the same ratio of residential -to -non- residential property as the City as it exists today. An empirical assessment of land use in both areas suggests this is a valid point of departure. Capital costs for new park and trail improvements and street upgrades were estimated based on the land use plan and annexation assumptions. Given a capital cost of $1,300,000 for a new park and trails in the annexation area, additional park expenditures (capital only; maintenance is already accounted for) will equal about $86,800 per year for 15 years, or $62 per new household. Street expenditures (capital only) will equal $55,000 per year, or about $40 per new household. Per - household budget expenditure = $2,782 + $102 $2,884. (2) In Alternative F -3, the ratio of residential -to- non - residential area is lower by about 14 %. As a result, the per - household figure assumed above would be too low by about 14% Park expenditures will remain constant but will be spread over a smaller number of households, creating an increment of $71 per new household. Street expenditures per household are assumed to be half what they are in Alternative A -2, since fewer miles of existing street will be annexed. For this alternative, a per- household budget expenditure therefore = ($2,782 x 1.14) + $71 + $20 $3,262. (3) In Alternative E -2, the ratio of residential -to -non- residential area declines to nearly zero. Increased capital costs are negligible. For this alternative, the actual per - household budget expenditure of $2,782 is used for the 80 anticipated households. These households would "pay" for services to about 5 acres of non - residential uses. For the other 60 acres, a surrogate measure is needed. It's been noted that a non - residential property costs less to service than a residential property of the same size. For this analysis, it's assumed that each non - residential acre is equivalent to 213 of each residential acre. Since each residential acre contains an average of three households, we have therefore assumed that each acre of non - residential property consumes as much in services as two households. Per acre budget expenditure = $5,564. The expenditures required to service the properties in Alternative E -2 is shown in Table 12. Table 12. Estimated Expenditures, Alternative E -2 Acreage Cost of Service Residential 139,100 Commercial 0.0 0 Industrial 10 ac 10.0 55,640 Industrial 5 ac 10.0 55,640 Industrial 2.5 ac 25.0' 139,100 Industrial 1 ac 15.0 83,460 Totals 472,940 'reduced by 5 acres to adjust for portion carried by new residential properties. Table 13 shows the aggregate anticipated increase in the City's spending budget in each alternative, based on the household growth found in Section 1 of this report. The total shown for Alternative E -2 includes an allowance for 11 -5 service demand from non - residential properties. Table 13. Anticipated Increase in City Expenditures Land -Use Alternative A -2' E -2' F -3' Within CitV Only 56,584,994' 2,820,948' 6,439,188' 2,125,448 'includes 'Within City" increment Actual property -tax collections (exclusive of state aid payments) equal 25% of the total revenue budget. Since 1988, on average, the City's net tax levy has equaled 15% to 17% of total revenues. However, this has occurred in a fiscal environment that includes more than $1.5 million in state aid. Given that HACA (homestead credit) payments have been frozen and that LGA (Local Government Aid) has declined significantly since 1988, it is assumed here that property taxes will have to bear a larger share of the budget load in the future. Cost/Benefit Analysis of Land -Use Alternatives The impact of annexation and new development comes down to a comparison of revenues and expenditures, From a fiscal standpoint, an ideal land use alternative would be one that maximizes revenues and minimizes expenditures. However, this might undermine other long -term planning policies and priorities, such as balancing the mix of housing within the community, maintaining a certain community character or providing jobs. The results of this study are shown in Table 14. Table 14. Fiscal Costi8eneft Analysi9 Land -Use Altemative A -2' E -2' F -3' City Only Total taxes to City S2,603.693 1,156.064 2,290,334 791,296 Total revenue impact (taxes x4) 10.414,772 4,627.616 9.161,336 3,165,184 Total anticipated expenditures 6.584,994 2,820,948 6.439.188 2,125.448 Net gain (loss) to City S3,829.778 1,806,668 2.722.148 1,039.736 'includes Whin City" increment Sensitivity Analysis One way to measure the validity of these results is by testing its assumptions. In the tables that follow, each of the assumptions used in determining net gain (loss) to the City is altered, one at a time, to see what effect the change would have on the results. Table 14a changes the tax rate from 29.626% to 23.701% (20% decrease). Table 14b changes expenditures per household from $2,782 to $3,338 (20% increase). Table 14c changes the ratio of property tax to total budget from 1:4 to 1:3 on the assumption that a dramatic drop in state aid to local government will occur within the next decade. Table 14d reduces the value of new residential properties by 15 %, These tests indicate that: City taxes could drop by 20% and the City would still benefit fiscally from both annexation and new development (in both the existing city and developing areas). Taxes would have to decrease radically for this result to be negative. City expenditures per household could increase by 20% or more without affecting the positive fiscal outcome of the annexation and new development. A change in the level of state aid would have the greatest impact on the City's budget. However, even this change would have to be quite dramatic before the net benefit to the City would be lost. A 15% decrease in the value of new residential development would cause a 30% drop in the net benefit to the City; however, it would not create a negative impact. Infill development within existing City boundaries is a net fiscal benefit, even if no annexation takes place. Similarly, any of the annexation alternatives produces a net benefit even if no infll development occurs, Table 14a- Fiscal CosllBenefit Analysis -- City Tax Rate - 23,701% ( -10;4) Land-Use Alternative Table 14b, Fiscal CostlBenefit Analysis Upenditures per Household = $3,338 ( +20X) Within A =2' 9,2• E -a: C, Only Total laxesto City 2,082.954 924,851 1,832,267 633.037 Total budget impact (revenues) 8,331,816 3,699,404 7,329,069 2532.147 Total anticipated expenditures 6.584,994 2.820,948 6,439,18e 2.125.448 Net gain (loss) to Cily 1,746,822 878,456 889,881 108,889 'includes 'Within City" increment Table 14b, Fiscal CostlBenefit Analysis Upenditures per Household = $3,338 ( +20X) Land -Use Alternative Within A -2• E -2• F -3• City Only Total lases to City 2.603,693 1,156.064 2,290,334 791,296 Total revenue impact (taxes x 4) 10,414,772 A,627.616 9,161,336 3.155,184 Total anticipated expenditures 7,901,993 3.385,138 7,727 026 2,550,232 Net gain (loss) to City 2,511,779 1,242,478 1,44,310 814,952 lncludes'Wllhut City" increment Table 14c. Fiscal Cost/Benefit Analysis – Budget 3 x Tax Revenues Land -Use Allernative Within A-2 E -2• F`3' Citv ON Total taxes to Cary 2.603,693 1,15S,t764 2.290.334 791,296 Total budget impact (revenues) 7,811,079 3.468.192 6,871,002 2,373.688 Total anticipated expenditures 6,584,994 2.820.948 6.439.188 2,125,446 Net gain (loss) to City 1,226,085 647,241 431,814 249,440 'indudes'Wiithin City" increment Table 14d. Fiscal CosllBeneflt Analysis – Residential Values Reduced 15% Land -lase Altemative Wdhin AA =2• E_2• FF3' CiN on Total taxes to City 2- 245,345 1,067,022 1,991,343 712,441 Total budget impact {revenues) 8.981,380 4,268,088 7,965,372 2.649,754 Total anticipated expenditures 6,584,994 2,820,948 8,439,186 2,125,448 Net gain (loss) to City 2,398,388 1,447,140 1,528,184 724,318 Includes 'Within City' increment Findings These results show that, based on the kind of development envisioned for both the annexation area and infrll properties, the City need not weigh fiscal impacts in pursuing its planning and policy objectives, At a time when the State of Minnesota is pruning aid payments to local governments and taxpayers are feeling pinched, this is a strong signal that the community will remain in good fiscal health in both the long and short terms.. ME Other important findings: - New development pays for itself, in terms of provision of infrastructure (new streets, sewers, water lines). The only cost to the city relates to contributing to the upgrade of existing deficient streets and providing a new park and trails. Operating and maintenance costs for all public improvements are paid by the increase in taxes and other revenues. The planned 250 multi - family units located in the existing city will not be a drain on the City's fiscal position (This housing will generate about $725,000 in additional revenues and require about $695,500 in expenditures.) Commercial and industrial properties are a substantial net benefit to the City. This is most clearly demonstrated by the contrast between Alternatives E -2 and F -3. The anticipated increase in taxes due to the annexation in Alternative F -3 could be used, all or in part, to reduce property taxes for current residential properties. It bears repeating that fiscal impacts are only one consideration in determining the City's future planning policy. Many other goals, objectives, policies and priorities must be taken into account before the future direction of the city is chartered. Key Fiscal Goals Place emphasis upon "quality" and not quantity of future development. Stage new development to not out - distance the community's ability to pay for the increased need for pubic facilities and services. Minimize the cost of providing city services to city taxpayers. Objectives Weigh fiscal impacts of new development with other city objectives to determine the appropriate rate, type and staging of development. Consider fiscal impact of new development on city taxpayers when reviewing future development plans. 11 -7 Require new development to pay their way for extended public facilities and services. Work with Stillwater Township residents financially impacted by annexation to reduce the effect of annexation but accommodate city growth. Polices and Programs Policy 1: Use city assessment policy to allocate costs of public improvements. Policy 2: Consider methods of assessing existing township residences annexed to the city at a reduced rate for trunk tine extension but to account for future service connection costs. Policy 3: Consider methods of reducing the tax burden or annexed township residents through use of rural taxing district. Program (1) Review the fiscal impact of specific development plan to make sure the projected tax revenues pay the service cost of new development. Program (2) Reduce the impact of annexation on the Stillwater Township tax base by phasing the tax loss on annexed township lands. Program (3) Establish city fee structures that favor Stillwater city residents over residents of unincorporated surrounding areas or find methods of nonresident users of city services to pay for those services, i. e., parks, library. Program (4) Monitor proposed developments to determine if they meet the valuation and density expectations as planned in the comprehensive plan. If they vary, measure the probable fiscal impact of the differences. Program (5) Consider increases in construction charge rates for both the existing city and the proposed expansion area and review underlying systems to flag unique charges for specific districts within the city. Program (6) Corridor establishing a storm water connection charge in conjunction with the utility charge to fund all or a portion of the operating and improvement costs as storm water systems. Plan Implementation The goals, objectives, policies and programs contained in the Comprehensive Plan are listed below by section as they appear in the plan. Refer to the implementation index to determine who is responsible for carrying out the policy or program and what project or action is required. There are major implementation projects or work items that respond to or carry out many of the policies or programs listed in the plan. Described below are some of the major work items (projects /actions) that will be carried out after plan adoption. Some of the items are ongoing such as subdivision ordinance or zoning ordinance updates and others are project specific such as trailways neighborhood or greenbelt planning. The last major work item is plan monitoring and update. This item calls for the Planning Commission and City Council with the assistance of the Community Development Department to annually review its comprehensive planning efforts - its goals and objectives (expectations) as compared with what has been accomplished. Based on the review, the plan may need to be revised. Adoption of Comprehensive Plan. There are many policies and programs contained in the Comprehensive Plan that stand alone as a direction for city action. These policies and programs need no further city action to be implemented. Zoning Ordinance Revision. Many land use proposals call for adoption of specific zoning regulations or the creation of new or application of existing zoning districts. The proposed land use map designation will be used to amend the zoning map. State law requires that city land use regulations be consistent with the Comprehensive Plan. Zoning ordinance text changes will also be required to implement certain comprehensive plan policies or programs. In other situations, study results may require the zoning map or zoning regulations changes once the study is completed. Aspects of the zoning ordinance that may need to be revised include dimensional requirements such as lot area, width and setback or use requirements controlling permitted and conditionally permitted. In some cases, new zoning districts will be required. Subdivision Ordinance Revisions Some of the plan policies particularly those in the natural resource and open space section and land use section provide direction for amendment of the subdivision ordinance. Subdivision design standards may need to be changed to accommodate some of the road design standards recommend for consideration when looking at innovative development concepts in the URTPA. Park dedication requirements and trail standards will also be revised and added to the subdivision ordinance to implement 32-I park plan standards and policy. Greenwa s and View Corridors. Greenways surrounding the north, west and south boundaries are called for in the comprehensive plan to provide separation between Stillwater and surrounding less developed areas and destination and boundary to the City of Stillwater. A detailed design plan and design guidelines will be developed for the overall greenway. The greenway plans can be constructed as a part of development construction or independently by the city as a public project. Parks Planning This Comprehensive Plan includes the first city -wide review of park facilities and needs conducted by the city, planning commission and parks board. This comprehensive review has resulted in a long list of park policies, programs and projects that need to be carried out. Neighborhood parks need to be evaluated and repianned, new parks purchased, planned and improved, ravines evaluated for resource value and purpose and management policy established, community parks obtained and improved. As the city grows and community recreation demands increase, the City of Stillwater may more actively participate in providing recreation programs or operating recreation programs. Trailways and Bikeways The plan calls for the planning and construction of a comprehensive trailways and bikeways system. Once a plan is prepared, it can be used to guide traiiway or bikeway construction as part of street improvement projects and provide a basis for construction of bikeways or trailways as a part of new development. Capital Improvements Program Many of the policies and programs in the public services and facilities section and Parks, riverfront and trails section require acquisition of property or construction of capital facilities. The capital improvements program provides a city planning, budgeting, scheduling and financing tool which will enable the city to carry out and coordinate the construction of public facilities. The capital improvement program is for five years and identify funding sources and financing methods and project responsibility. Special Area Plans 12 -2 The Comprehensive Plan is the foundation for the city's land use policy. Two of the plans primary purposes are to address city -wide planning issues and to set a framework for more detailed planning on a specific area basis. Many times it is necessary for general policies or programs to be applied to specific areas. The special area planning process is the process that allows that refinement in policy to occur. Special area plans can be prepared for existing neighborhoods or new areas. Section 13 - Special Area Planning - provides direction and examples of design guidelines for special area plans. !-sousing Action Program (HAP) The adoption of housing policies and programs that meet the life cycle need of the residents of Stillwater are critical to the comprehensive plan. The City of Stillwater is participating in the Metropolitan Council Local Housing Incentives Program including establishing City of Stillwater housing goals based on regional benchmarks. In the area of housing, the Comprehensive Plan places additional emphasis on the preservation of existing housing stock and provision of affordable rental housing units for all income levels. Monitoring and Update of the Comprehensive Plan As conditions change and growth and development occurs, it is necessary to monitor change in order to evaluate if the comprehensive plan goals and objectives are being achieved or changes in policy direction are needed. The comprehensive plan will be reviewed for progress and change annually and amended as needed. Implementation Index The Implementation Index for comprehensive plan policies and programs is listed below. Refer to plan sections for full policy or program statement. A list of implementing responsible agencies and projects or actions is key to and follows the Implementation Index. 12-3 Implementation Index 'See responsible agency list. 'See implementation project/action list. 12-4 Policy Program Section /Subsection No. No. Responsible' Program /Action' 2.0 Community Character Open Space and Rural Setting 1 CC, CPC, CDD 24 2 CPC, CDD 24, 1 3 CPC, CDD 24, 1 4 CPC, CDD 24,1 5 CPC, CDD 24 1 CPC, CDD 1 2 CPC, CDD 24,1 3 CPC, CDD 24,2 4 CPC, CDD 3 5 CPC, CDD 3 Streetscape 6 CPC, CDD 2, 4, 8 7 CPC, CDD 2, 4, 8 8 PB, CDD 2, 6, 8 9 CPC, CDD 6 10 CPC, CDD 7 11 CPC, CDD 24 12 CPC, CDD 24 Character of New Community 13 CPC, CDD 2 14 CPC, HPC, CDD 3, 8 15 CPC, HPC, CDD 3, 8 16 CPC, HPC, CDD 9 17 NG, CPC, CDD 19 6 CPC, CDD 4 7 CPC, CDD 2 'See responsible agency list. 'See implementation project/action list. 12-4 'See responsible agency list. 2See implementation project/action list. 12 -5 Policy Program Section /Subsection No. No. Responsible' Program /Action' 3.0 Land Use 1 2 CPC, CDD CPC, CDD 3, 4, 8, 10 10 3 CPC, CDD 2, 10 4 CPC, CDD, ST, WCMC 2, 10 5 CPC, CDD 2,8 6 CPC, CDD, ST 24, 11, 12 7 CPC, CDD 3, 4, 8 8 CPC, CDD 2, 4, 8 g CPC, CDD 3 10 CC, CPC, CDD 24 11 CC, CPC, CDD 11,12 12 CPC, CDD 24 1 CC, CPC, CDD 11,12 2 CPC, CDD 2,8 3 CPC, CDD 10 4 CC, CPC, CDD 13 5 CPC, CDD, ST 24 6 CPC, CDD 2,8 7 CPC, CDD, ST 24 Land Use 1 2 CPC, CDD PB, CPC, CDD 3 14.4 3 CC, CPC, CDD 24 4 CPC, CDD 15, 2, 4, 8 5 CPC, CDD 16 6 CC, CPC, CDD 24 Infrastructure 7 CC, CPC, CDD, PW 17 'See responsible agency list. 2See implementation project/action list. 12 -5 Section /Subsection Infrastructure, cost. Policy No. Program No. 19 CC, CDD, PW 8 CDD, PW, MNDOT 24 9 4.0 Transportation CPC, CDD 24 Auto Related 24 CC, PW, CPC 19,24 1 24 20 CDD, PW 2 CDD, PW 22 3 17 CDD, DTPC 4 5 6 7 8 1 2 3 4 5 6 Non -Auto 9 10 11 12 13 7 8 9 10 11 'See responsible agency list, 2See implementation project/action list. Responsible' I Program/Action2 CDD, FD 24 CC, CPC, CDD, FD 18 CPC, CDD, PW 24 CPC, CDD, PW 19 CC, CDD, PW 24 CDD, PW, MNDOT 24 CPC, CDD, PW 19 CPC, CDD 24 CC, PD 24 CC, PW, CPC 19,24 CDD, PW, MNDOT, WC CDD, PW, WC 24 20 CDD, PW 21 CDD, PW 22 CDD, PW 17 CDD, DTPC CPC, CDD, PW, NG 17,19 CPC, CDD 4,24 CDD, PW 4,8 PB, CDD, PW 15.17 PB, CDD, PW, MNDOT 15,17 PB, CDD, PW 15,17 PC, CDD, PW 15,17 CPC, CDD 4,8 CDD, PW 17 CDD, PW, SD 24 E2 -6 'See responsible agency list. 'See implementation projecUaction list. I2 -7 Policy Program Section /Subsection No, No. Responsible' Program /Action' NonAuto, cont. 12 PD 24 13 CDD, WC 15.24 14 CDD, PW 15, 17 15 CPC, CDD, NG 19 16 CDD, PW, MNDOT 15,17 5.0 Natural Resources /Open Space Existing City 1 PB, CPC, CDD 15,8 2 PB, CPC, CDD 2,8 3 CPC, NG, CDD 19,17 1 PB, CPC, CDD, PW 23, 3 2 PB, CPC, CDD, PW 23, 17 3 DB, CPC, CDD 15,2 4 PB, CPC, CDD, PW, MNDOT,OPH 15 URTPA 4 PB, CPC, CDD 15 5 PB, CPC, ST, WC, CDD 15 6 CPC, CDD, WC 2,10 7 CPC, CDD 2, 4, 8, 10 8 CPC, CDD, PW, WC 17 9 CC, CDD, ST, GT 24 5 CPC, CDD 4 6 CPC, CDD, WC 2, 8, 10 7 CPC, CDD 2,8 8 CPC, CDD 2 9 CPC, CDD 8 10 CPC, CDD 2,8 11 CPC, CDD 24 12 CPC, CDD 2, 4, 8 'See responsible agency list. 'See implementation projecUaction list. I2 -7 Section /Subsection Policy No, Program No. Responsible' Program /Action' 6.0 Housing 1 CDD 24 2 CDD 25 3 CC, CDD, WC, HRA 3,24 4 CPC, CDD 3 5 CPC, CC 3 6 CC, CDD 24 7 CDD 24 g CC, CDD 25 g CPC, CDD 26 1 CC, CDD 25 2 CC, CDD 24 3 CC, CDD 24 4 CC, CDD 25 5 CC, CDD 24 7.0 Local Economy 1 CPC, CDD 3 2 CC, CPC, CDD 24 3 CC, CPC, CDD 24 4 CC, CDD 1 CC, CPC, CDD 2, 3 2 CPC, CDD 24 3 CC, CDD 24 4 CC, CDD 24 5 CC, CDD 24 6 CPC, CDD 3 7 CC, CDD 24 Tourism 1 CC, CDD 24 2 CPC, CDD 24 'See responsible agency list. 2See implementation project/action list. 12-S 'See responsible agency list. -?See implementation project/action list. 12 -9 Policy Program Section /Subsection No. No. Responsible' Program /Action2 3 CPC, CDD 3,24 4 CC, HPC, CPC, CDD 3,26 5 PW 24 1 CC, CDD, FD 27 2 CC, CDD 28 3 HPC, CDD 26 4 CC, CDD, PW 17 5 CC, CDD, PW 17 6 CC, HPC, CPC, CDD 24 7 CC, HPC, CPC, CDD 26 8 CC, CDD, DTPC 24 9 CC, CDD, CHG 24 10 CC, CDD, PW 17 11 CC, CPC, CDD 24 8.0 Parks, Riverfront, Trails Parks Standards 1 PB, CPC, CDD 2,14 2 PB, CPC, CDD, 2, 4, 8, 14 3 PB, CPC, CDD 17 4 PB, CPC, CDD 24 5 PB, CPC, CDD 24 6 CDD 24 7 CC, WC, ST, OPH, CDD 24 8 P8, CDD, PW 24 1 NG, PB, CPC, CDD 19 2 CC, CDD 24 3 PB, CPC, CDD 29 4 PB, CPC, CDD 24 5 CPC, CDD, CC 4, 8, 15, 17 6 CPC, CDD, SD 2 'See responsible agency list. -?See implementation project/action list. 12 -9 'See responsible agency list. 2See implementation project/action list. 13 -10 Policy Program Section /Subsection No. No. Responsible' Program /Action2 Facilities Use 9 CC, SD, CPC, CDD 24 7 CC, SD, CPC, CDD 24 8 PS, CDD 24 9 CC, PB, SD, CDD 24 10 PB, CDD, PW 24 11 PB, CDD, WC, ST 24 Park Location and Design 10 CPC, CDD 2, 4, 8, 14 11 PB, CDD 19,24 12 PB, CPC, CDD 4, 8, 14 13 PKD 24 12 PKD, CDD 24 13 PB, CPC, CDD 4, 8, 14 14 PB, CPC, CDD 4, 8, 14 15 PD 24 16 PD, CDD 24 17 PD, CDD, NG 30 18 CDD, PW 24 19 PKD, PW, CDD 17 20 CC, PKD 17 Trails and Pathways 14 PB, CDD 15 15 CPC, CDD 1 16 CPC, PB, CDD 4, 8, 14, 15 17 PB, CDD, PKD 24 18 PB, CDD, PKD 24 19 CC, CDD, PW, OPH, ST 24 20 CC, PKD PW 24 21 PB, CDD, PW 15 'See responsible agency list. 2See implementation project/action list. 13 -10 'See responsible agency list. 2See implementation projectlaction list. 12 -11 Policy Program Section /Subsection No. No. Responsible' ProgramlActionz Riverfront 21 PB, COD, PW 29,17 22 PB, CPC, COD 17 23 PB, CPC, COD 29 22 PB, CPC, COD 29 23 CC, CDD, PKD 17 24 COD 24 25 CC, PB, CPC, COD 24 9.0 Historic Resources 1 HPC, COD 24 2 HPC, COD 31 1 HPC, COD 31 3 HPC, COD 26 4 CC, HPC, CDD 24 5 CC, HPC, COD 24 6 HPC, COD 24 7 HPC, COD, PW 17,24 8 HPC, COD 24 2 HPC, COD 26 3 HPC, COD 24 4 HPC, COD 28 5 HPC, COD 32 10.0 Public Facilities 1 PW, COD, CPC 17 2 PW, CDD, CPC 17,30 3 PW 17,24 1 PW 24 2 PB, CPC, PW, COD 23 3 PW 17 4 CC, PW, COD 24 'See responsible agency list. 2See implementation projectlaction list. 12 -11 'See responsible agency list. 2See implementation projectlaction list. 12 -12 Policy Program Section /Subsection No. No. Responsible' Program/Action2 10.0 Public Facilities, cont_ 5 CC, PW, CDD 24 6 CC, CPC, CDD 11, 12 7 CC, SD, CPC, CDD 2,24 8 CC, CPC 11 g CC, CPC, CDD 11 1 PW 24 2 PW, CDD, CPC, P8 23 3 PW 17 4 PW, CDD 24 11.0 Fiscal 1 FD, PW 18,24 2 CC, FD, PW CDD 18 3 CC, FD, PW CDD 18 1 FD, CDD 24 2 CC, FD 24 3 CC, FD 24 4 CC, FD CDD 24 5 CC, FD, CDD 24 6 PW, FD 24 'See responsible agency list. 2See implementation projectlaction list. 12 -12 Implementation ProjectlAction Listed below are specific work items, projects or actions required to implement the Comprehensive Plan. The work items will result in implementation of policies or programs as indicated in the Implementation Index. Project/Action Description 1. View Corridor Study 2. Special Area Plans 3. Zoning Ordinance Revision 4. Subdivision Ordinance Revision 5. Planned Unit Development Review Process 6. Street Tree Planting Plan 7. Directional Sign Plan 8. Planned Unit Development Design Review 9. Heritage Tree Ordinance 10. Greenbelt Plan 11, Annexation 12. MUSA Expansion 13. Annual Plan Review and Update 14. Park Dedication Requirements Study 15. Bikeway/Trailways Plan 16. Project Environmental Review 17. Capital Improvements Program 18. Rural Taxing District, Assessment Policy 19. Neighborhood planning 20. Greeley /Owen Street Traffic Study 21. Deerpath Traffic Study 22. Downtown Parking Management Plan 23. Ravine Study 24. Ongoing 25. Housing Rehabilitation Program 26. Historic Preservation Design Review 27. Hotel /Motel Room Tax 28. Downtown Commercial Rehabilitation Program 29. Kolliner and Aiple Property Park Plan 30. Neighborhood Park Plans 31. Neighborhood Historic Building Survey 32. Demolition Ordinance 12 -13 Responsible Agencies Listed below are agencies responsible for implementing Comprehensive Plan policies or programs. The responsible agency or agencies are listed for each policy or program on the Implementation Index. CC City Council CPC City Planning Commission PB Parks Board HPC Heritage Preservation Commission CDD Community Development Department PW Public Works Department PKD Parks Department WC Washington County MnDOT Minnesota Department of Transportation MC Metropolitan Council SMB State Municipal Board ST Stillwater Township OPH The City of Oak Park Heights DNR Department of Natural Resources MWBAC Minnesota Wisconsin Boundary Area Commission SD Independent School District 834 FD Fire Department NAR No Additional Action Required OG Ongoing DTPC Downtown Parking Commission PD Police Department NG Neighborhood Groups GT Grant Township WCHRA. Washington County Housing and Redevelopemnt CHC Chamber of Commerce 12 -14 City of Stillwater Comprehensive Plan December 12, 1995 Special Areas Plans The land use plan map and policies provide general direction for future land use decision for the entire Stillwater planning area. The objectives and policy statements are usually posed in general terms so they can give direction in a variety of situations. This section of the plan identifies geographic areas or districts within Stillwater and calls for more detailed planning of those areas. Since 1987, three special area plans have been prepared and adopted by the City of Stillwater. Three phases were prepared for the Brick Pond Area (1987). The Downtown Area (1988) and West Stillwater Business Park (1990). Each of these plans were developed through an area planning process similar to this comprehensive planning process. Each plan used the land use, transportation and urban design policy direction of the comprehensive plan and applied them to an area within the community. The three area plans are a part of the city -wide comprehensive plan. Below is a summary of each plan. Since adoption in the late 80's, many of the policies and programs in the area plans have been implemented or are in the process of being implemented. Brick Pond Area Plan The Brick Pond Area Plan contains a proposed land use plan, a utility plan, with a parks element. The area has been rezoned and streets and utilities installed. A park area was designated in the plan. When the area is more fully developed the park will be improved to meet the needs of the adjacent residential area. 13 -1 Stillwater Downtown Plan The Stillwater Downtown Plan was adopted in 1988. The plan is a comprehensive review of downtown conditions. Sections of the plan address land use, traffic, circulation and parking, utilities and streets, pedestrian circulation, urban design, streetscape and design guidelines. A specific three -phase implementation program is described in the plan. Many of the plan implementation items have been completed. An extensive $7 million Phase I downtown renovation and public improvements project was constructed 1991 - 1992. The project resulted in a comprehensive upgrade of the entire downtown infrastructure including new storm sewers, sanitary sewer, water lines, street reconstruction, curbs gutters and sidewalks, street lighting, parking lot improvements, new North Main park lot (100 spaces), Water Street raised pedestrian walkway, underground overhead utilities, new NSP gas services, water line extension to all buildings for sprinkler systems and & I storm sewer improvements. Since plan adoption, new zoning regulations have been applied to the downtown reducing building heights and limiting incompatible uses. Design review guidelines and a design review process has been established with the Heritage Preservation Commission acting as the city design review body. Beside the $7 million of public investment, over $10 million of private investment has taken place in downtown. Other plan implementation actions include purchase of six acres of Burlington Northern Railroad land for Lowell Park, purchase of railroad land and Lumberman's Exchange building for adoptive reuse as a hotel /meeting center. Purchase of the UBC site for reuse and city parking facility (1996 scheduled completion), preparation of Lowell Park plan and funding for levee wail reconstruction (1996 start). Phase II and III of plan implementation includes Lowell Park renovation by reconstructing the levee wall and extending Lowell Park and Phase III constructing a 100 - 150 car parking lot on a portion of the UBC site at the corner of Second and Olive Streets. Lowell Park will be renovated in sections over the next several years beginning with the extension of the park from Myrtle Street to Mulberry Point. West Stillwater Business Park Plan The West Stillwater Business Park Plan was adopted in 1990. The plan was prepared after a major commercial development proposal failed. The proposed major commercial development raised questions regarding land use, circulation and area design that were addressed in the West Stillwater Business Park Plan. The plan redesigned land uses for the entire business park, office, commercial or industrial, contains a circulation plan and provides site and building design guidelines. Since plan adoption in 1990, the area has been rezoned consistent with the land use designations, a design review process has been established and road and utility improvements on Curve Crest Boulevard, Orleans Street extension and TH 36 Frontage Road /Market Drive have been made. The lack of light research and development business park land has been identified in the economy section of the comprehensive plan. A new park development is shown directly west of the business park. Urban Rural Transition Planning Area to 2010 The URTPA is comprised of five district subareas as shown on the special study areas map. Each 13 -2 sub -area is characteristic of its location and natural setting, i.e., Long Lake, Brown's Creek, South Twin Lake and presents a different set of specific development opportunities and constraints. A purpose of the URTPA area plans is to recognize the unique characteristics of the area and to apply those general objectives and policies specifically to each unique area. As an example, the comprehensive plan parks, open space and trails section describes the parks policy of seven acres of neighborhood park and three acres of community park per 1000 residents. For the parks to be effective and provide character to the developing area they must be located appropriately and linked to residential areas with pedestrian and bicycle ways. The trails section of the comprehensive plan describes an overall trails system for the URTPA area and calls for neighborhood trails to provide access to neighborhood and community wide destination. Specific trail and park locations should be shown in the special area plans. This special area planning process could be a part of actual planned unit development, PUD review process or a separate phase apart from the actual development review process. Land use, parks and open space and trails, natural resource protection, transportation (road location and access) and design policies will be addressed in the specific special area plans. Once the plans are prepared and approved they will provide specific detailed direction for the development of the URTPA subarea. Development agreements, assessment agreements and other contractual arrangements can be used to ensure implementation of the special area plans. Contents of URTPA Plans Land Use 11lwAter 4 T..I.Y 2. I 7 I a�� i j 3.i � !� �4, COMPREHENSIVE PLAN MAP 4. SWU05BAA - 1H -1995. lnaleht Mann in¢ & DemoQranhics dnc SPECIAL STUDY AREAS 1. , ,TWIN LAKE AREA 2. BOUTWELL AREA 3. LONG LAKE AREA 4. HWY 36 AREA I V • 1" = 7500' 1119!95 5. COUNTY ROAD 5 AREA 6. EXISTING CITY NEIGHBORHOOD Natural Resource Protection Parks, Open Space and Trails Transportation /Circulation Overall Pro -ject Design and Character Implementation of Plan /Phasing of Development Neighborhood Plans As an adjunct to the comprehensive planning process, neighborhood plans will be prepared for existing neighborhoods or districts of the city. The plans will apply city -wide polices to local conditions and be sensitive to the unique design elements and character of each area. Elements of area plans may include neighborhood park planning, unifying streetscape design, traffic redirecting, management and enforcement, pathways and sidewalks, housing renovation and historic preservation. Each neighborhood plan will strive to improve neighborhood identity and conditions. Principles of neo- traditional planning will be explored to see how mixed -use planning principles apply to existing neighborhoods. The neighborhood planning process should foster a sense of neighborhood and communication between the residents, neighborhood groups and the city. Design Guidelines A visual preference survey was conducted as part of the ward network comprehensive planning input process. The following design guidelines were developed from the visual preference survey results. The guidelines can provide direction for the special area planning for newly developing areas or existing neighborhoods. Open Space 13 -3 Preserve and maintain existing open spaces, including natural drainage ways to remain as natural areas and pedestrian pathways. Use natural areas as separations and greenbelts. Provide park space for each neighborhood. Approximately 1500 foot frequency (5 minute walk). Link open space areas with trails /pedestrian pathways. Range of Housing Opportunities Buildings should respect local context and relate in scale and design to the surrounding buildings. Locate garages and parking access away form street. Allow ancillary units within single - family detached areas. Heavily landscaped area around multifamily developments. A range of residential dwelling types should be provided in each neighborhood area. These should include a mix of housing density, price and building types. A possible range of dwelling types within each neighborhood include: A single family detached. A semi - attached unit which can be two units or a unit and a professional office. Duplex or two- family houses. Single family attached townhouses limited to four units. Condominiums or apartments with six or fewer units. Apartments in a house (granny flats) Apartments or condominiums above commercial units. Accessory units (less than 600 sq. ft.) in rear yards. Approximately 80 percent of housing units in a Particular neighborhood should be single- family detached. Streetscapes The following design principles can improve the appearance of neighborhoods: Provide shade trees along all streets Provide sidewalk system connecting all areas Provide build -to lot lines to bring houses and porches closer to the sidewalk. Allow alley access for vehicles. Sidewalks, nature walks and bike paths are all desirable. Provide pathways with adequate signage, landscaping and maintenance programs. A variety of shade trees should be provided along all streets. Street tress should be spaced no further than 30 feet on center in planter strips or tree wells located between the curb and sidewalk. Tree species and planting techniques should be selected to create a unified image for the street. Provide an effective canopy. Avoid sidewalk damage and minimize utility disturbance. Sidewalks or equivalent are required on all streets and must provide an unobstructed path at least five feet wide. Larger sidewalk dimensions are desirable in core commercial areas where pedestrian activity will be greatest and where outdoor seating is encouraged. 134 Two -way residential streets should include the following design and landscape elements: 42 foot right of way 10 foot build -to property line 15 - 22 mph design speed 5 foot sidewalk required Parking on one side Canopy trees required Pedestrian scaled lighting Commercial /Economic Provide design guidelines and landscaping requirements. Buffer commercial uses from noncommercial areas. Neighborhood Commercial This area should foster a sense of neighborhood "center" through a variety of civic and/or commercial buildings and spaces. In general, it should provide a place for neighbors to meet while undertaking daily activities within walking distance of their residents. Possible uses include commercial buildings (grocery stores, craft shops, boutiques, salons, rental stores, restaurants, cares, delicatessens, bakeries) work place buildings (offices, studios, craftshops) and public buildings, (schools, churches, libraries, assembly halls, daycare centers). Buildings should respect local context and relate in scale and design to the surrounding buildings. Parking, loading and utilities should be located to the rear. The sites should be landscaped and buffered from adjacent non - commercial areas. Neighborhood commercial uses should: Develop as neighborhood centers. Housing opportunities should be considered above commerciallretail areas. Open Space -Parks Preserve and maintain existing open space area to remain as natural areas. Major creeks, wetlands, slopes, woodlands and other sensitive environmental features should be conserved as open space amenities and incorporated into the design of new neighborhoods. Use natural areas as separations and greenbelts. Fencing and piping of creeks should be avoided and channelization minimized. Pedestrian Pathways Provide pedestrian routes connecting all housing units to neighborhood centers, neighborhood centers to adjacent neighborhood centers and eventually to the commercial core (downtown). Provide pathways with adequate signage, landscaping and maintenance programs. Pedestrian Pathways Sidewalks, nature walks and bike paths are all desirable. Commercial /Economic Provide design guidelines and landscaping requirements for all commercial developments. Buffer commercial uses from non - commercial uses. Provide fully landscaped parking areas. Provide pedestrian pathways linking to neighborhood centers. 13 -5 rw: Ar �� �.: y • 4 t.j if Clusler:ng allows a better . S •� �+� } fry mixture of unit types and densities, single family ' 'f f�• �'� detached and attached units _ r • •- =,* -mot=.. T!'!, -� milk "it I'd Provision of open space means less environmental disturbance, more existing natural resources especially when trees are left in place' Natural drainage system can be retained More compact development reduces clearing and grading and saves on the inlrastruclure needed to service the residential units t � 4 �3. i i Y. >4 wf r,rn P1.'L. Mai. -��`; ��i���•' •?1 �� � l��Lr7��3��� i Residential colieclor road Increased safety — no cars backing onto Through residential streets Ellectiveness of cluster layout in creating usable open space Clustering concerttrat-as houses, streets and uiisi,es on the most buildable parts of a site coo � o � � CIO C] X n r R C 1 "5 Cl � 3 �o 0 71 73 r 0 I E31 Ion :. 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They are defined here to clarify their meaning and provide a consistent understanding of the planning principles and practices used in the plan. CBD: Central Business District CIP: Capital Improvements Program HPC: Heritage Preservation Commission SCPC: Stillwater City Planning Commission SCPB: Stillwater City Parks Board TDR: Transfer of Development Rights JPA: Joint Powers Authority WCHRA: Washington County Housing Redevelopment Authority TSM: Transportation System Management DRC: Design Review Committee Met Council: Metropolitan Council Access /Egress - The ability to enter a site from a roadway (access) and exit a site onto a roadway (egress) by motorized vehicle. Acreage Gross - The entire acreage of a site used for density calculations. Acres Net - The portion of a site remaining after public or private right of ways and land not developable (see developable land) are subtracted from total acreage. Affordable - Capable of being purchased or rented by a household with very, low, low or moderate income based on a households ability to make monthly payments. Housing is considered affordable when a household pays no more then 30 percent of its gross monthly in for housing. Design Guidelines - Regulations and procedures requiring the site design and exterior design of structures to be suitably harmonious and in Beeping with the general appearance, historical character and/or style of surrounding structures and areas. Design Review - The process used to exercise design control. Bicycle Lane - A corridor expressly reserved for bicycles, existing on a street or roadway in addition to any lands for use by motorized vehicles. Identified by the state as a Class II facility. Bicycle Path - A paved route not on a street or roadway and expressly reserved for 1 bicycles traversing an otherwise unpaved area. Bicycle paths may parallel roads but typically are separated from them by landscaping. Identified by the state as a Class I facility. Bicycle Route Bicycle Route - A facility shared with motorists and identified only by sings. A bicycle route has no pavement markings lane stripes. Identified by the state as a Class III facility. Bikeways - A term that encompasses bicycle lanes, bicycle paths and bicycle routes. Blight - A condition of deterioration of a site, structure or area that may cause nearby buildings and/or areas to decline inattractiveness and/or utility. Buffer Zone - An area of land separating two distinct land uses which acts to soften or mitigate the effects of one land use on the other. Building - Any structure used or intended for supporting or sheltering any use or occupancy. City - City generally refers to the government or administration of the City of Stillwater. Cluster Development - Development in which a number of dwelling units are placed in closer proximity than usual or are attached with the purpose of retaining an open space area. Collector - Relative low -speed (25 - 30 miles per hour) relatively low- volume (5,000 to 20,000 average daily trips) street, typically two lanes, which provided circulation within and between neighborhoods. Collectors usually serve relatively short tips and are meant to collect trips from, local streets and distribute them to the arterial network. Community Park - Land with full public access intended to provide recreation opportunities beyond those supplied by neighborhood parks. Community parks are larger in scale than neighborhood parks but smaller than regional parks. Compatible - Capable of exiting together without conflict or ill effects. Consistent - Free from variation or contradiction. Programs in the general plan are to consistent, not contradictory or preferential. State law requires consistency between a general plan and implementation measure such as the zoning ordinance. Dedication - The turning over by an owner or developer or private land for public use and the acceptance of land for such use by the government agency having jurisdiction over the public function for which it will be used. Dedications for roads, parks, school sites or other 2 public uses often are made conditions for city approval of a development. Dedication, In lieu of - Cash payments which may be required of an owner or developer as a substitute for a dedication of land, usually calculated in dollars per lot or square foot of land or building area and referred to as in lieu fees or in lieu contributions. Density - The degree of crowding together of people or buildings. For housing, density is the number of permanent residential dwelling units per acres of land. All densities specified in the comprehensive plan are expressed in maximum number of units per gross developable acres. (See Developable Acres, Gross "). Density can be controlled through zoning in the following ways: minimum lot size requirements, floor area ration, land use intensity ratio, setback and yard requirements, minimum house size requirement, ratios comparing number and types of housing units to land area, limits on units per acres and other means. Maximum allowable density often serves as the major distinction between residential districts. Density Transfer - A way of retaining open space by increasing densities usually in compact areas adjacent to existing urbanization and utilities while leaving unchanged historic, sensitive or hazardous areas. For example, developers can buy or trade development rights of properties targeted for public open space and transfer the additional density to the base number of units permitted in the zone in which they propose to develop. Developable Acres, Net - the portion of a site remaining after removing or deducting public or private road right -of way and land not developable (see "Developable Land ") and which can then be built upon. Net acreage includes required yards or setbacks. Developable Land - Land which is suitable as a location for structures and which can be developed free of development hazards to and without disruption of or significant impact on natural resource areas. Development - The physical extension and/or construction or urban land uses. Development activities include: subdivision of land; construction or alternation of structures, roads, utilities and other facilities; installation of septic systems, grading; deposit of refuse, debris or fill materials; and clearing of natural vegetation cover (with the exception of agricultural activities). Routine repair and maintenance activities are exempted. Development Rights -- The selling of rights to develop land by a land owner who maintain fee - simple ownership over the land. The owner keeps title but agrees to continue using the land as it has been used and the holder of development rights maintains the right to develop. Such rights usually are expressed in terms of density allowed under existing zoning. 3 Development Rights, Transfer of (TDR) - Also known as "Transfer of Development Credits" a program which can relocate potential development from areas where proposed land use or environmental impacts are considered undesirable (the "donor" site) to another ( "receiver ") site chosen on the basis of its ability to accommodate additional units of development beyond that for which it was zoned, with minimal environmental, social and aesthetic impacts. Diversion - The direction of water in a stream away form its natural course (i.e., as in a diversion that removes water from a stream for human use). Dwelling Unit - A room or group of rooms (including sleeping, eating, cooking and sanitation facilities but not more than one kitchen) which constitutes an independent housekeeping unit, occupied or intended for occupancy by one family on a long -term basis. Easement - Usually the right to use property owned by another for specific purposes. Easements are either for the benefit of land, such as the right to cross A to get to B, or "in gross" such as a public utility easement. For example, "rear" lots without street frontage may be accessed via an easement over the "front" lots. Utility companies use easement over the private property of individuals to be able to install and maintain utility facilities. Easement, Conservation - A tool for acquiring open space at a cost less then full fee purchase, whereby a public agency buys only certain specific rights form the land owner. These may be positive rights (providing the public with the opportunity to hunt, fish, hike or ride over the land) or they may be restrictive rights (limiting the uses to which the land owner may devote the land in the future). Easement, Scenic - A tool that allows a public agency to use, at nominal cost, private land for scenic enhancement, such as roadside landscaping or vista preservation. Elderly Housing - Typically one and two bedroom apartments designed to meet the needs of person 62 year of age and older and restricted to occupancy by them. Enhance - To improve existing conditions by increasing the quantity or quality of beneficial uses. Environment - The physical conditions which exist within the area which will be affected by a proposed project, including land, air, water, mineral, flora, fauna, noise and objects of historic or aesthetic significant. This comprehensive plan defines environment to also include social and economic conditions. Environmental Impact Statement - A report that assesses all the environmental characteristics of area and determines what effects or impacts will result if the area is altered or disturbed by a proposed action. 4 Erosion - The loosening and transportation or rock and solid debris by wind, rain or running water. The gradual wearing away of the upper layers of earth. Exaction - A contribution or payment required as an authorized precondition for receiving a development permit; usually refers to mandatory dedication (or fee in lieu of dedication) requirements found in many subdivision regulations. Export- Employment Use - An activity which produces an /or distributes goods and services for export to firms and individual outside of Stillwater. Expressway - A highway (usually divided) with limited access by major streets crossing at the same grade level. Such intersections may be signalized. TH 36 is an expressway. Feasible - Capable of being done, executed or managed successfully from the standpoint of the physical and /or financial abilities of the implementor(s). Finding(s) - The result(s) of an investigation and the basis upon which decisions are made. Findings are made by government agents and bodies prior to taking action and are a record of the jurisdictions for such action(s). Fiscal Impact - A projection of the direct, current public costs and revenue resulting from population or employment change to the local jurisdiction (s) in which the change is taking place. Enables local governments to evaluate relative fiscal merits of projects. Flood, 100 -year - The magnitude of flood expected to occur on the average every 100 years, based on historical data. The 100 -year flood has 11100 or one percent chance of occurring in any given year. Flood Plain - All land between the floodway and the upper elevation of the 100 -year flood. Freeway - High- speed, high- capacity, limited- access transportation facility serving regional and county -wide travel. Generally used for long trips between major land use generators. Major streets cross at a different grade level. Interstate 94 is the only such facility in Washington County. Entryway or Entryway Corridor - A point along a roadway entering the city at which a motorist gains a sense of having left the environs and of having entered the city. A gateway may be a publicly -owned place having an area for motorists to pull off or park and view maps, gather information and generally become oriented to Stillwater or it may be a privately owned place which through special development standards or guidelines (e.g., for landscaping and signs) marks entry to the city or a combination of both. The intent of the gateway designation on the comprehensive plan land use map is to insure that a highly visible location in the city may be appropriately treated. 1.7 Comprehensive Plan A compendium of the city's policies regarding its long -term development, in the form official maps and accompanying text. The comprehensive plan is a legal document required of each local agency by the State of Minnesota and is adopted by the city council. The comprehensive plan may be called a city plan, comprehensive plan or master plan. Goal -A general, overall and ultimate purpose, aim or end towards which the city will direct effort. Grasslands - Land reserved for pasturing or mowing in which grasses are the predominant vegetation. Groundwater - Water under the earth's surface, often confined to aquifers capable of supplying wells and springs. Groundwater Recharge - The natural process of infiltration and percolation of rainwater from land areas or streams through permeable soils into water holding rocks which provide underground storage. Guidelines - General statements of policy direction around which specific details may be later established. Habitat - The physical location or type of environment in which an organisms or biological population lives or occurs. Handicapped - A person determined to have a physical impairment or mental disorder expected to be of long or indefinite duration. Many such impairments or disorders are of such a nature that a person's ability to live independently can be improved by appropriate housing conditions. Hazardous Material - An injurious substance, including (among others) pesticides, herbicides, poisons, toxic metals and chemicals, liquified natural gas, explosives, volatile chemicals and nuclear fuels. Historic Preservation - The preservation of historically significant structures and neighborhoods until such time as restoration or rehabilitation of the building(s) to a former condition can be accomplished. Home Occupation - A commercial activity conducted solely by the occupants of a particular dwelling unit in a manner incidental to residential occupancy. Household -All persons residing in a single dwelling unit. C Housing Unit - The place of permanent or customary abode of a person or household. A housing unit may be single family dwelling, a condominium, a modular home, a mobile home, a cooperative or located in a multifamily dwelling or any other residential unit considered real property under state law. A housing unit has a least, cooking facilities, a bathroom and a place to sleep. It also is a dwelling that cannot be moved without substantial damage or unreasonable cost. Impact Fees - Fees levied on the developer of a project by the city as compensation for unmitigated impacts the project will produce. Impervious Surface - Surface through which water cannot penetrate, such as roof, road, sidewalk and paved parking lot. The amount of impervious surface increased with development and established the need for drainage facilities to carry the increased runoff. Implementation - Actions, procedures, programs or techniques that carry out policies. Business Park - A planned assemblage of buildings designed for Workplace Use. Infill - Development of vacant land (usually individual lots or left -over properties) within areas which are already largely developed. Infrastructure - Public services and facilities such as sewage disposal systems, water supply systems other utility systems and roads. Joint Powers Authority (JPA) - A legal arrangement that enables two or more units of government to share authority in order to plan and carry out a specific program or set of programs that serves both units. Land Banking - When a local government buys land and holds it for resale at a later date, usually for development of affordable housing. Landmark - Refers to building or site having historic, architectural, social or cultural significance and designated for preservation by the local, state or federal government. Landscaping - Planting - including trees, shrubs and ground covers - suitably designed, selected, installed and maintained so as to permanently enhance a site, the surroundings of a structure or the sides or medians of a roadway. Land Use - The occupation or utilization of land or water area for any human activity or any purpose defined in the general plan_ Land Use Categories - A classification system for the designation of appropriate use of properties. The land use categories and limit lines used on the comprehensive plan land 7 use map are: Agriculture - Land that are primarily used for the production of food and fiber. Includes soil tilling, crop growing, horticulture, viticulture, grazing livestock and poultry raising, dairying, riding stables or animal husbandry as a principal use on a property. Commercial - Facilities for the business of buying and selling of commodities and services. The general plan has five commercial categories: Commercial, community - Larger shopping centers and the city's central shopping district that have a variety and depth of goods and services usually not available in neighborhood shopping areas. Commercial, neighborhood - Commercially serves primarily the needs of the adjacent residential area. Commercial, thoroughfare - Commercial development extending along a street and depended on passing traffic. Retailers' ability to benefit form other retailers's efforts, such as by a common parking area or promotion plan are diminished in contrast to commercial development clustered at a shopping center. Office - General business offices, medical and professional offices, administrative or headquarters offices for large wholesaling and manufacturing operations and research and development. Land Use Plan - A basic element of the general plan, it combines text and maps to designate the future use or reuse of land within a given jurisdiction's planning area. A land use plan serves as a guide to the structuring of zoning and subdivision controls, urban renewal and capital improvements programs and to official decisions regarding the distribution and intensity of development and the location of public facilities and open space. Land Use Regulations - A term encompassing the regulation of and in general and often used to mean those regulations incorporated in the comprehensive plan as distinct zoning regulations (which are more specific). Level of Service (LOS) - A scale that measures the operating capacity likely to be encountered on a roadway or at the intersection of roadways, based on a volume -to- capacity ration, with levels ranging from A to F, with A representing the lowest volume -to- capacity ratio and the highest level of services. Minimize - To reduce or lessen, but not necessarily to eliminate. W Minipark, Mini -park - Small neighborhood park of approximately one acres or less. Mitigate - o ameliorate, alleviate or avoid to the extent reasonably feasible. According to CEQA, mitigations include: (a) Avoiding an impact by not taking a certain action or parts of an action; (b) Minimizing an impact by limiting the degree or magnitude of the action and its implementation; (c) Rectifying an impact by repairing, rehabilitating or restoring the environment affected; (d) Reducing or eliminating an impact be preserving and maintaining operations during the life of the action; (e) compensating for an impact by replacing or providing substitute resources or environments. Neighborhood Park - City -owned land intended to serve the recreation needs of people living or working within a one -half mile radius of the park and also intended to contribute to a distinct neighborhood identity. Objective - A specific statement of desire future conditions toward which the city will expend effort in the context of striving to achieve a broader goal. Outdoor Recreation Use - A privately owned or operated use providing facilities for outdoor recreation activities. Overlay -A land use designation on the land use map or a zoning designation on a zoning map, which modifies the basic underlying designation in some specific manner. In this comprehensive plan, the urban separator is an overlay which recognizes the underlying residential densities and permits the transfer of the underlying number of units to a developable portion of the same property on a case -by -case basis. Parcel - A lot or contiguous group of lots in single ownership or under single control usually considered a unit for purposes of development. Parking Area, Public - An open area excluding a street or other public way used for the parking of automobiles and available to the public whether free or for compensation. Parkway Strip - A piece of land parallel to a road and usually lying within the right of way and located between the rear of a curb and the front of a sidewalk. Usually used for planting low ground cover and /or street trees. Also known as planter strip. Payback Period - The number of years required to accumulate savings equal to the value of a proposed investment. Peak Hour - For any given traffic facility the daily 60- minute period during which traffic volume is highest. Performance Standards - Zoning regulations that admit uses based on a particular set we of standards of operation rather than on the particular type of use. Performance standards may be established to limit noise air pollution, emissions, odors, vibration, dust, dirt, glare, heat, fire hazards, wastes, traffic generation and visual impact of a use. Pollution - Nonpoint - Sources of water for pollution which are difficult to define and which usually cover broad areas of land such as the carrying of fertilizers from agricultural land by runoff. Program - An action, activity or strategy carried out in response to adopted policy to achieve a specific objective. Policies and programs establish the who, how and when for carrying out the what and where of goals and objectives. Pro Rata - Refers to the proportionate distribution of the cost of infrastructure improvements associated with new development to the users of the infrastructure on the basis of projected use. Protect - To maintain and preserve beneficial uses in their present condition as nearly as possible. Regulation - A rule or order prescribed for management of government. Residential - Land designated by the city's comprehensive plan and zoning ordinance for buildings consisting only of dwelling units. may be vacant or unimproved. Resources, nonrenewable - Refers to natural resources such as fossil fuels and natural gas which once used cannot be replaced and used again. Restore - To renew, rebuild or reconstruct to a former state. Restrict - To check, bound or decrease the range, scope or incidence of a particular condition. Retrofit - The addition of materials and/or devices to an existing building or system to improve its operation or efficiency. Right of Way - The strip of land over which certain transportation and public use facilities are built such as roadways, railroads and utility lines. Rural - Development at a density of no greater than one dwelling unit per 40 acres, the open land used for open space or agricultural purposes. Semi -rural - Development at a density of more than one dwelling unit per 10 acres. 10 Siltation - (1) The accumulating deposition of eroded material. (2) The gradual filling in of streams and other bodies of water and sand, silt and clay. Single- family dwelling, attached - A dwelling unit occupied or intended for occupation by only one family that is structurally connected with other such dwelling units. Single - family dwelling, detached -A dwelling unit occupied or intended for occupation by only one family that is structurally independent from any other such dwelling unit or structure intended for residential or other use. Site - A parcel of land used or intended for one use or a group of uses and having frontage on a public or an approved private street. Slope - Land gradient described as 100 times the vertical rise divided by the horizontal run. For example, a hill or road which rises in elevation 15 feet in a horizontal length of 100 feet has a slope of 15 percent. Solid Waste - General category that includes organic wastes, paper products, metals, glass, plastics, cloth, brick, rock, soil, leather, rubber, yard wastes and wood. Organic wastes and paper products comprise about 75 percent of typical urban solid waste. Special Area Plan or Specific Plan - A tool for detailed design and implementation of a defined portion of the area covered by a comprehensive plan. A specific plan may include all detained regulations, conditions, programs and/or proposed legislation which may be necessary or convenient of the systematic implementation of any comprehensive plan or a portion thereof. Standards - Usually refers to site design regulations such as lot area, height limit, frontage, landscaping and floor area ratio as distinguished from use restriction; loosely refers to all requirements in a zoning ordinance. Storm Runoff - Surplus surface water generated by rainfall that does not seep into the earth but flows overland to flowing or stagnant bodies of water. Street Tree Plan - A comprehensive plan for all city street trees which sets goals for tree canopy densities and solar access and sets standards for species selection, maintenance and replacement criteria and for planting trees in patterns that will define neighborhood character while avoiding monotony to maintenance problems. Streets, local - Low speed /low volume roadways that provide direct access to abutting land uses. Driveways to individual units, on- street parking and pedestrian access are allowed. 11 Streets, segmented - Street which are not continuous Structure - Anything constructed or erected which requires location on the ground (excluding swimming pools, fences and wails used as fences). Substandard Housing - Residential dwellings which because of their physical condition do not provide safe and sanitary housing. Substantial - Considerable in importance, value, degree or amount. Tourism - The business of providing services for persons traveling for pleasure, tourism contributes to the vitality of the community by providing revenue to local business. Tourism can be measured through changes in the transient occupancy tax or restaurant sales. Transit - The conveyance of persons or goods from one place to another by means of a local, public transportation system. Transit - dependent - Refers to persons unable to operate automobiles or other motorized vehicles or those who do not own motorized vehicles. Transit - dependent citizens must rely on transit, para- transit or owners or private vehicles for transportation. Transit - dependent citizens include the young, the elderly, the poor and those with prior violations in motor vehicle laws. Transportation Systems Management (TSM) - A comprehensive strategy developed to address the problems caused by additional development, increasing trips and a shortfall in transportation capacity. Transportation systems management focuses on more efficiently utilizing existing highway and transit systems rather than expanding them. Objectives include reducing the number of vehicle trips, shortening trip lengths and distributing the timing of trips throughout the day so as to ease congestion during peak travel times. Trees, heritage - Trees planted by a group of citizens of by the city in commemoration of an event or in memory of a person figuring significantly in the history of the city. Trees, landmark - Trees whose size, visual impact or association with a historically significant structure or event have led the city to designate them as landmarks. Trees, street - Trees strategically planted usually in parkway strips or medians to enhance the visual quality of a street. Trip - A one -way journey that proceeds from an origin to a destination via a single type of vehicular transportation; the smallest unit of movement considered in transportation studies. 12 Trip Generation - The dynamics that account for people making trips in automobiles or by means of public transportation. Trip generation is the basis for estimating the level of use for a transportation system and the impact of additional development or transportation facilities on an existing, local transportation system. Undevelopable - Specific areas where topographic, geologic and/or surficial soil conditions indicate a significant danger to future occupants. Urban Design - The attempt to give form, in terms of both beauty and function, to selected urban areas to whole cities. Urban design is concerned with the location, mass and design of various urban components and combines elements of urban planning, architecture and landscape architecture. Urban Open Space - The absence of buildings or development usually in well defined volumes, within urban environment. Urban Sprawl - Haphazard growth or outward extension of a city resulting from uncontrolled or poorly managed development. Use - The purpose for which a lot or structure is or may be leased, occupied, maintained, arranged, designed, intended, constructed, erected, moved, altered and /or enlarged pursuant to the city's zoning ordinance and general land use designation. Utility Corridors - Rights of way or easements for utility lines on either publicly or privately owned property. View Corridor - The line of sight identified as to height, width and distance of an observer looking toward an object of significance to the community. Viewshed - The area within view from a defined observation. Watershed - The total area above a given point on a waterway that contributes water to its flow; the entire region drained by a waterway or watercourse which drains into a lake or reservoir. Waterway - Natural or once natural flowing (perennially or intermittently) water including rivers, streams and creeks. Includes natural waterways that have been channelized, but does not include manmade channels, ditches and underground drainage and sewage systems. Zoning - The division of a city be legislative regulations into areas or zones which specify allowable uses for real property and size restrictions for buildings within these areas; a 13 program that carries out policies of the general plan. Zoning District - A designated section of the city for which prescribed land use requirements and building and development standards are uniform. 14 DIVISION I SANITARY SEWER COMPREHENSIVE PLAN Introduction APPENDIX R This report is an amendment to the City of Stillwater's Comprehensive Plan prepared in 1971. The original Comprehensive Sewer Plan is dated November 3, 1971. Early construction of the Stillwater sewer system dates back to 1860. Common to many river communities, the system was designed to accommodate both sanitary sewage flow and storm water runoff. This practice was continued in the City until about 1950 following which new projects provided for separate sanitary and storm sewer facilities. The combined sewers constructed before 1950 remain today for sanitary sewers only. The system included trunk facilities which discharged flow directly into the St. Croix River. In 1958 an interceptor sewer and primary treatment facilities were constructed. The treatment facility was expanded to include secondary treatment in 1970. This facility was taken over by the Metropolitan Sewer Board in 1971. A report was prepared by Banister Short Elliott Hendrickson and Associates in May 1970 on "Reducing Untreated Combined Wastewater Overflows to the St. Croix River ". The recommendation of this report was the construction of a separate storm sewer system. Sewer separation was accomplished in 1972 and 1973, throughout the original City. The combined sewer overflow discharge to the St. Croix River was eliminated. The remaining combined sewers now serve as sanitary sewers only. The capacity of these sewers was addressed in the 1971 Comprehensive Sewer Plan. Since the older sewers were part of a combined system originally, all the sanitary sewer within the original town and flowing down the hills and ravines to the river interceptor have excess capacity for the most part. An amendment to the Comprehensive Sewer Plan was submitted in 1980 and further amended in 1982. The 1980 amendment included a proposed 373 residential lot development. The 1952 amendment included scattered development areas together with a compilation of existing wastewater flows in the Industrial Park at the south end of Stillwater. In June 1990, a comprehensive feasibility report was completed for the Central Business District. This report resulted in a project constructed in 1991 and 1992. This project added additional storm sewer in the Central Business District providing a means for sewer separation in the downtown area for roof area drainage. -1- The City of Stillwater rehabilitated the South Main Lift Station in 1993. This reduced some I /I. All three pumps were replaced which eliminated erratic pumping to the wastewater treatment facility. There are no private treatment systems in the City other than on -site systems in the northeast area of Stillwater. The City of Stillwater passed an ordinance in 1973 against clear water connections to the sanitary sewer. With the completion of the Central Business District project, all determined clear water connections have been provided for. The City is in the process of enforcing the ordinance and keeping ongoing vigilance. All new construction of sanitary sewers requires gasket joints, sealed and gasket manholes and concealed pick holes without open holes for manhole covers. Groundwater has rarely been intercepted within the newly developed areas of the City away from the river. The City of Stillwater has completed the cost effective removal of I/I as presented in the 1/I Analysis Report dated May 1, 1982. 2. Basis for Design As a part of our study, we reviewed the 1971 Comprehensive Sewer Plan and 1980 -1982 updates, alignment and sewer flows. We also studied the URTPA as outlined in the Comprehensive Plan on page 3 -1. This area was also addressed in the 1971 Comprehensive Sewer Plan. The proposed sewer route for the URTPA generally follows the route indicated in the 1971 plan. However, because of some preliminary platting that has been prepared, a more refined alignment is possible at this time. Concept and preliminary plats have been prepared between Washington County Road 64 and S.T.H. 96; Washington County Road 64 and Boutwell Road; Washington County Road 12 and S.T.H_ 36. All of these concept plats are generally between Neal Avenue and Washington County Road 15 as indicated on Drawing No. 1. The following table provides the land use type by trunk sewer service area in the URTPA: -I - Service Area Single f=amily Large Lot Single Family Small Lot Attached Townhouse CA General Commercial Research & Development Office D.U.'s (2) D.U.'s D.U.'s AC. AC. South Trunk A 20 0 40 65 AC South Trunk B 330 280 Unit 5 AC Middle Trunk A 80 Ultimate 102 Middle Trunk 8 0 250 50 Single Family -Large Lot North Trunk 1 75 1 75 150 100 340 t` From Land Use Map Section 3.0 of the Comprehensive Plan (2) Dwelling Unit The unit wastewater flows used were the same as the unit flows verified for the City of Stillwater by actual water use in 1982. The unlit flows have been increased for the year 2010 in accordance with Metropolitan sewer standards. The following table of design criteria outlines the unit flows, and population densities used, by land use type: 4 units /AC f2' 5 units/AC 8 unils /AC `°' 15 units /AC 151 Without a peaking factor -3- LE esi n-Crtiena Persons/ Gals/Cap/Day GaVUnit/Day ts� Land Use Type Unit Ultimate Gal/Acre/Day 1995 2000 2010 Single Family -Large Lot 3.4 85 95 100 340 1360 Single Family -Small Lot "' 3.2 85 95 100 320 1600 Attached Townhouse {" 2.2 75 85 95 209 1672 Multi - Family 2.0 75 85 95 190 2850 Commerdal 1300 R&D IND /Office 2000 4 units /AC f2' 5 units/AC 8 unils /AC `°' 15 units /AC 151 Without a peaking factor -3- Peaking factors used were taken from a curve of the design average flow versus the peak flow. Peaking factors were not used for calculated flows from commercial/ industrial and public use in accordance with standard engineering practice. The total wastewater design flow calculated in the 1971 Comprehensive Sewer Plan was 4.29 million gallons per day (MGD) and the flow calculated as part of this report for the annexation area was 1.63 MGD at full development. Traditionally, the more conservative calculation should be used for design since all development plans are not known at this time. Each subdistrict is calculated separately, so pipe size and capacity requirements downstream from each subdistrict discharge point can be predicted. This increases the design accuracy and permits the City control of development in any given subdistrict by total allocated sewage flow. The original flow calculated at 4.29 MGD was for the total flow at the river interceptor extended to the northerly City limits. The North Hill area of the City is still not sewered and the City has annexed a limited amount of area north of T.H. 96 in this vicinity. A report was prepared for this service area in 1974. Sewer service has not been provided because of cost of construction. This area has shallow ledge rock and extreme variations in elevation. The City has continuously tried to find funding for this area over the years and feels that sanitary sewer construction may now be possible by the year 2010. A 780 gpm lift station (B230) was proposed as a Metropolitan Sewer Board facility in 1974 for this area of Stillwater. The area included 230 acres outside the City. This would provide a total service area of 443 acres. The 18 -inch trunk sewer along the St. Croix River has a reserve capacity of 1,300 gpm which will accommodate the northeast area as well as the planned area included in this Comprehensive Plan Amendment. This is in conformance with the Plan B, year 2010, of the Metropolitan Sewer Board in 1974. The City will plan for service only within the present City limits at this time, with no anticipation of participation by the MCES for sewers outside the proposed City limits unless sewer service is petitioned by others. The following table contains an estimated rate of development for the comprehensive sewer plan amendment URTPA area and the expected sewage generated until the year 2010. This table also has an estimated population increase within the comprehensive sewer plan amendment area. -4- p O N d } T 9 b C C (4 AW (0 C O 7 a f4 co o LO o CD b.;. C CD N N U) d O O, v (D 0) LO ' E p C d p a T O O • U) v .N-- �r O °o (°D LO °o o ° oO ° l[7 co v Cl) r� 6! H N p� (D r O O Q .49 f� d R r N co LO a Q) y 0 T G O O O O O ID a co tr (D W - _� T N Q 07 d M (D a N (D v ��..a, fA �• � } tie: O �. p o a O LO N 1 LO o 19 O i� n (p r O O (n (M N N V O N m T N r V? w 0� 0 O o • . 1 o LL. 1 } Q1 w o E LU � � d o e o o v � M O • LO . a a O a a LO n O 4 o O oa o 0 o0 0 o 0 a a 0 0 o j' r= o � L' ° a ° ao (°n O LO tn ui } el iL H �oCO' Lo (°c°D ° m ao 0 �� -°H co ch G x Y y.-0h d q C ' m -.9 H F- b a m o o p O N d } T 9 b C C (4 AW (0 C O 7 a f4 The total existing flow for the City of Stillwater at the MCES wastewater treatment facility was 2.0712 MGD average as measured at the treatment plant. Of the total 4.5 MGD wastewater treatment plant design, 3.1805 MGD has been allocated to the City. The flow projected by the MCES for the Stillwater Wastewater Treatment plant for the year 2010 is 3.145 MGD. The City of Stillwater measured flow of 2.0712 MGD in 1994, added to the projected flow from the annexation area of 0.5247 MGD, yields a projected flow at the wastewater treatment plant of 2.5959 MGD by the year 2010. Subsequent projected flows, using the 1994 measured flow as a base, are as follows: Year 1994 Measured Proposed Flow Total Allocation Needed 2000 2.0712 MGD 0.2082 MGD 2.2794 MGD 2005 2.0712 MGD 0.41785 MGD 2.4891 MGD 2010 2.0712 MGD 0.5247 MGD 2.5959 MGD The above table applies to the proposed planning area west of the present City limits to Washington County Highway 15. The only other unsewered areas not included in the original comprehensive sewer plan dated 1971 are the northeast area and the southeast area. The southeast area was constructed in 1994, adding 86 dwelling units to the Stillwater sewer system. The projected flow for the homes in this area is 0.0516 MGD. The northeast area has not been sewered yet but has a projected flow of 0.4438 MGD. All other areas were accounted for in the original Comprehensive Sewer Plan or subsequent amendments, and were a part of the City's original evaluation of the wastewater plant expansion. Reserve capacities requested at that time had also included projections for the areas included in this plan amendment. The estimated flow for the year 2010 from the total City of Stillwater should be: 2.0712 MGD 0.5247 MGD 0.5004 MGD 3.0963 MGD 3.145 MGD This provides for only the portion of the northeast area within the present City limits. All of the standards applied are in accordance with the Recommended Standards for Sewage Works of the Great Lakes -Upper Mississippi River Board of State Sanitary Engineers (commonly called the 10 State Standards). Member states to this board include Minnesota. These design standards also meet MCES criteria. The Metropolitan Council and the City of Stillwater were contacted to predict population projections. The enclosed comprehensive plan has a 1993 City population of 15,001. The projection of the City population for the year 2000 is 16,825, and for the year 2010 it is 19,475. These are Metropolitan Council population projections as indicated in the Comprehensive Plan Land Use Section 3.0. According to the survey of sewer use data for 1994 submitted to the Metropolitan Council Wastewater Services, the City of Stillwater has a total of 5,559 Residential Equivalent Connections. The 1994 estimated sewered population is 14,997. The following table is an estimated projection of connections and sewered population for the Comprehensive Sewer Plan Amendment and the two unsewered areas within the City: Table 4 Estimated Flow Total MCES 1994 Proposed Flow for NE Area Estimated Flow Allocation pleasured Flow Planning Area and SE Area for Year 2010 for Year 2010 2.0712 MGD 0.5247 MGD 0.5004 MGD 3.0963 MGD 3.145 MGD This provides for only the portion of the northeast area within the present City limits. All of the standards applied are in accordance with the Recommended Standards for Sewage Works of the Great Lakes -Upper Mississippi River Board of State Sanitary Engineers (commonly called the 10 State Standards). Member states to this board include Minnesota. These design standards also meet MCES criteria. The Metropolitan Council and the City of Stillwater were contacted to predict population projections. The enclosed comprehensive plan has a 1993 City population of 15,001. The projection of the City population for the year 2000 is 16,825, and for the year 2010 it is 19,475. These are Metropolitan Council population projections as indicated in the Comprehensive Plan Land Use Section 3.0. According to the survey of sewer use data for 1994 submitted to the Metropolitan Council Wastewater Services, the City of Stillwater has a total of 5,559 Residential Equivalent Connections. The 1994 estimated sewered population is 14,997. The following table is an estimated projection of connections and sewered population for the Comprehensive Sewer Plan Amendment and the two unsewered areas within the City: Table 4 2000 2005 2010 f �1 Sewered ft :C „� Sewered REC (3� Sewered REC Population Population Population 1. Single Family D.U. 2068 697 1533 467 1620 478 2. Multiple Family D.U. 304 140 137 62 83 38 3. General Commercial 6 -- - -- -- 4. R & 0 Office -- -- -- 37 -- 50 ` includes southeast area {2' Includes northeast area j ) Residential Equivalent Connections -7- A comprehensive soil investigation is not within the scope of this project. However, there are no known peat soils within the proposed sewer trunk alignment requiring piling for pipe support. Rock bedding and dewatering may be necessary. DNR dewatering permits may be required when any of the trunk sewers are constructed. DNR regulations shall be followed when constructing near wetlands and stream beds. Construction procedures such as saving existing top soils containing native vegetation seed to be placed on top of the sewer trench will be practiced. Erosion control with silt fence and floating silt fence if required will need to be included in any construction plans. Each trunk sewer identified does not have the flow volume requiring a mandatory EAW if constructed according to the proposed phasing indicated in the accompanying tables. At the time these trunk sewers are proposed for construction, the need for an EAW will have to be addressed. As plans are developed for trunk sewer construction, all government agencies will need to be contacted. Some of the agencies involved are the MPCA, MCES, DNR, Browns Creek Watershed, Washington County and the Metropolitan Council. The proposed land use map is included in the Comprehensive Plan and was used as a basis for sewage flow calculations as presented in Table 1. 3_ Proposed Improvements Alignment changes from the 1971 Comprehensive Sewer Plan were not made other than for the preliminary plats received to date. The trunk sewer locations and trunk sewer districts are indicated on Drawing No. 1. The trunk sewers are still deep enough to serve the areas adjacent to County Road 15, with additional laterals and subtrunks. The sanitary sewer and lift station, completed in 1994, on the east side of County Road 5, was sized to accommodate South Trunk A and South Trunk B. However, this comprehensive sewer plartamendment contains the preferred alignment as designed for the original Comprehensive Sewer Plan. South Trunk A discharges into the sewer extension under County Road 5, which was completed in 1994. South Trunk B flows northerly to connect with Middle Trunk A. It is anticipated that Middle Trunk A will not contribute any flow to the system before the year 2010. Middle Trunk A follows the outfall ditch for Long Lake north of Washington County Road 12. This is existing city right -of -way. The trunk sewer will then be constructed adjacent to the low and wetland area between Boutwell Road and its connection with the Middle Trunk B sewer. Easements and permits will be required for this sewer construction. This sewer will M basically traverse undeveloped areas and there are no proposed plats at this time in the vicinity of the proposed sewer route. It is anticipated that open trench construction will be possible except a jacked /boring crossing will be required on Washington County Road 12. The Middle Trunk B sewer will be constructed within proposed street right -of -way except a portion along the south side of the Minnesota Transportation Museum (MTM) railroad immediately west of Neal Avenue. The sewer has sufficient size and depth to serve unplatted land to the west of the proposed plat but termination of the trunk sewer at this time is at the south end of the proposed plat in the vicinity of 80th Street North. The connection to the existing Mulberry Street Trunk will be east of Neal Avenue and south of the railroad tracks. The North Trunk sewer will discharge into the Middle Trunk B sewer on the south side of the railroad west of Neal Avenue. This will require a jacked crossing at both Washington County Road 64 and the railroad tracks. Wetland permits for sewer construction will also be required. This sewer is sized to serve properties west and adjacent to the proposed plat when, in the future, a need should arise. Construction Considerations Construction is proposed in the winter in wetland areas. This will ease any impact on the wetlands. The DNR is concerned about rock pipe bedding providing a channel for groundwater to follow, thereby draining the wetlands. Some type of restriction to groundwater flow will be used as part of the proposed construction. This can be accomplished by using a geotextile fabric in the trench enveloping the rock bedding and pipe or with the use of check dams constructed at designated intervals around the pipe. These check dams are typically constructed of concrete or bentonite and encircle the pipe from trench wall to trench wall thus blocking the water flow between segments dammed. The sewer depth ranges from 14' to 39' and is deep enough to serve all the areas designated on the Comprehensive Sewer Plan for service to the Mulberry Street Trunk Sewer. Gasketed pipe will be used throughout the project to eliminate exfiltration of waste into the groundwater and conversely, groundwater into the pipe. Gasketed manholes will also be recommended. Larger manholes are included at certain locations so developers may construct inside drops as a part of their connection of shallower sewers in the street, thereby elimina ting the need to dig as deep as the trunk sewer for an outside drop connection. This also accommodates easier future maintenance by City crews. M Soil borings should be taken before any sewer design begins. If the underlying soils in the area contain heavy clays, these soils may be used as trench backfill thus creating an impervious area for groundwater intrusion above the pipe zone. If the water table is high, it may be necessary to dry the clay before backfilling to obtain the desired compaction. If new developments will not be constructed immediately, and some consolidation and settlement of the trench area can be tolerated, the degree of compaction is not as critical. However, if settlement cannot be tolerated, replacement backfill within the upper portion of the trench can be used together with good compaction standards. This replacement backfill will also be more granular in nature. Because of the depth of the sewer, subcutting of the trench area may be necessary in certain areas. This will require wide temporary easements for construction. The total easement width requirement will be determined once plans are started, surveys completed and actual sewer depths measured. At this time, it is anticipated that 150' easement widths may be required for the deeper segments of the sewer. It is proposed that all disturbed areas be graded with topsoil and restored with seed. The native topsoil in wetland areas will be saved and replaced within the wetland area on top after sewer construction. These topsoils usually contain native grass seeds and will assist in natural restoration of the wetland area. Cost The total cost of the proposed trunk sewer improvements is estimated to be $1,960,000. These estimated costs include 35% for construction contingencies, administration, bonding costs, engineering and legal. The total estimated cost by sewer district is as follows: South Trunk "A" $375,000 South Trunk "B" $525,000 Middle Trunk "A" $300,000 Middle Trunk "B" $330,000 North Trunk $430,000 These estimated costs use 1995 dollars. Any part of trunk sewers constructed in the upcoming years will need the estimates adjusted accordingly for inflation and price increase. The Engineering News Record Construction Index may be used for this purpose. Cost recovery should be addressed at the time improvements are ordered. -10- I hereby certify that this report was prepared by me or under my direct supervision, and that I am a duly Registered Professional Engi nder the laws of State of Minnesota. I Date: ¢ 3 Reg, No_: 14691 -11- APPENDIX C DIVISION II WATER MAIN COMPREHENSIVE PLAN Introduction Wa+er main within the original area of Stillwater dates back to the early 18GG's.- There are basically three pressure zones within the total system. The low pressure system serves the area along the St. Croix River, including the Downtown area. This pressure zone extends up the hill west of the river to South 6th Street between Chestnut and Mulberry Streets. The area between Pine Street and Chestnut Street, west to Second Street is also a part of the low pressure system. The middle pressure system serves virtually the rest of the original city. The third pressure zone was provided for the Industrial Park and new developments along T.H. 36, as well as scattered areas on the west side of the City. The Stillwater Board of Water Commissioners has had various studies and reports completed over the years, for various aspects of the system. Most of these studies have been in conjunction with specific Public Improvement projects. However, a report prepared in 1982 addressed supply and storage for the area included in this study. In 1981 a more comprehensive water study was completed for the Board of Water Commissioners in conjunction with the Oak Glen development. This report contained information for connections to the existing system, future storage needs and locations and future water main extensions and connections which would improve the water system. This study area is generally between S.T.H. 96 and S.T.H. 36 and Neal Avenue on the east and Washington County Road 15 on the west. This study developed design criteria for population, water consumption and fire flow requirements as well as analyzing some of the existing systems distribution facilities. The study will provide overall guidelines for future City water system construction within the study area. Existing System The City of Stillwater has water main in various locations, generally along the eastern edge of the study area. There are trunk mains in various locations for source connections. - 1 - The existing Stillwater water system consists of three components. These components are: Supply (wells) b. Storage (elevated tanks and ground reservoirs) C. Distribution System (water mains) The City of Stillwater has six wells connected to the total system. The study area will be supplied from the third (high) pressure system. This system is presently supplied by three wells. The pumping rate of these three wells is: Well No. Pumping Rate (GPM) 8 1111 9 1039 10 1000 Well No. 10 is the newest and was activated in 1994. The existing storage on the high system is provided by one 500,000 gallon elevated storage tank. The high water elevation of this tank is 1090. Design Criteria There are several factors which are considered in the analysis of a water system and its ability to supply the water requirements of a city. These factors are the population served by the system, the capacity of wells, storage tanks and reservoirs, the water consumption per person during peak periods, fire flow requirements as determined by the Insurance Services Office, and the minimum and maximum pressure limitations in the distribution system. The analysis of the Stillwater water system has been based on the capacity of the water system to meet either peak day demands plus required fire flow or peak hour demands, whichever is greatest. The study area considered for this report has no history with the Stillwater Board of Water Commissioners. Therefore, the demand rates in the existing high system were used for this report. A fire demand of 1,500 gpm over a 3 -hour period was used to test the fire flow. -2- Water consumption of 120 g /c /d was used for this study. The water records indicate that the average water consumption in the high system is 116 g /c /d. The data used for estimating the water consumption is as follows: (1) Full Development; Year Unknown (2) Residential Only - Excludes Comm /Ind. The average daily demand for the study area is as follows: Residential 1.6326 MGD Commercial 0.231188 R &D Ind /Office 0.506250 Total Average Day 2.37 MGD The maximum day, average rate is calculated as follows: 2.37 MGD x 2.5 = 4,115 G.PJV1. 1440 The total flow rate required, }used upon the maximum day average is as follows: Maximum Day Demand 4115 GPM Fire Demand (3 hrs at 1500 GPM) Consumption Year Population No. Connections {21 Average Day - 2000 2776 935 — - 360,880 2010 2834 1710 368,420 -- (1) 13,605 4410 1,632,600 (1) Full Development; Year Unknown (2) Residential Only - Excludes Comm /Ind. The average daily demand for the study area is as follows: Residential 1.6326 MGD Commercial 0.231188 R &D Ind /Office 0.506250 Total Average Day 2.37 MGD The maximum day, average rate is calculated as follows: 2.37 MGD x 2.5 = 4,115 G.PJV1. 1440 The total flow rate required, }used upon the maximum day average is as follows: Maximum Day Demand 4115 GPM Fire Demand (3 hrs at 1500 GPM) 1500 Total Flow Required 5615 GPM Less Present Operating Supply Well No. 8 1111 GPM Well No. 9 1039 Well No. 10 1000 3150 Deficiency 2465 GPM -3- Less Storage in High Pressure System (assume 80% full) 500,000 Gals x .80 = 4000,000 Gals over 3 hrs 2222 GPM Additional Storage Needed 243 GPM If the Olive Street storage reservoir is also used, — Assume 80% full: 750,000 x 0.80 = 600,000 over 3 hours = 3333 GPM This reduces the deficiency. Water Board personnel would have to open certain valves and closely monitor the system during fire flow because of pressure differences. These figures all consider full development. Certainly as development begins, the requirements will be less. 4. Proposed Improvements The report prepared for the Board of Water Commissioners in 1982, titled "Water Supply and Storage ", identified six potential elevated tank sites in the study area. One site was in the Oak Glen development adjacent to Eagle Ridge Place. Since this property was designated as a tank site, however, tank painting and maintenance regulations have become more stringent. It is now required that the Water Board provide 150' of clear space around and outside of the tank diameter to spread plastic when painting the tank. It is required to pick up this plastic after painting and dispose of it. The Stillwater Board of Water Commissioners should consider the present regulations when reviewing this site for an elevated tank. One other site identified in 1982 is within the study area. This site is west of the present designated tank location. This site is indicated on Drawing No. 1. The trunk water mains proposed range in size from 12" diameter to 16" diameter pipe. These mains follow the trunk sanitary sewer routes proposed in the 1995 comprehensive sewer plan amendment. Exceptions are for areas where adjacent properties require no service for the most part. The proposed trunk water main is indicated on Drawing No. 1 Water main sizing was accomplished by use of the computer program entitled Waterworks. This program is adapted to CADD (Computer Aided Design and Drafting) for mapping capabilities. Drawing No. 2 is the map representing the final computer run. This shows the pipe nodes used with residual pressures. A copy of the computer input and results is included with this report. Drawing No. 2 represents the water main requirements with full development in the study area. This schematic includes additional storage at the site location indicated on Drawing No. 1. Additional source is required with full development. This was indicated on additional computer runs without storage, where the system residual pressure falls below the required 20 psi. -4- Iteration 1 was nun considering a water main loop completed on County Road 15 from the south portion of the study area to the northwest corner. No additional source was provided. This developed a negative flow at 20 psi residual in the northwest corner. Therefore, additional source is required. Iteration 2 considered adding additional source with no loop on County Road 15. This produces about 300 gpm at 20 psi residual in the northwest corner. This voeuld function satisfactorily without a loop on County Road 15 and an additional source. Iteration 3 provides no additional source and no loop on County Road 15. The northwest corner will not be supplied with enough water at 20 psi with a fire flow demand. Also, the dead end in the middle northerly portion of the study area falls to 9 psi. Iteration 4 provides no development between County Road 64 and T.H. 96, no additional source and no loop on County Road 15. This maintains proper pressure throughout the system, but will not allow development north of County Road 64. Iteration 5 removes development between County Road 64 and T.H. 96, with no future additional source but including a loop on County Road 15 to the middle north area. With the loop closed on 80th Street, the flow remains at 706 gpm and 20 psi residual but, no development is provided between County Road 64 and T.H. 96. Another sensitive part of the system that was studied, was the connection of a loop for the existing water main on Neal Avenue and the existing 12 inch water main on Northland Avenue. This loop connection was recommended as a necessary future connection in past water studies. Iteration 6 provides for no development between County Road 64 and T.H. 96, no additional source and no loop connection from the Northland 12 inch water main to Neal Avenue 12 inch water main. The system seems to function with 600 gpm and 20 psi residual at west node #13 on 80th Street. Iteration 7 was nun with no additional source, no proposed development between County Road 64 and no development as proposed north of 80th Street. Also, no loop along County Road 15. This would provide for development between T.H. 36 and County Road 12 with adequate flow at 20 psi. This does not provide a loop back to the high system for safety of service in case of a water main break. The purpose of the different iterations is to determine what part of the system can be developed before additional source or storage is required, so that the Board of Water Commissioners can do their fiscal planning. Also, any improvements needed for the system at each stage of operation. Different iterations can be run on the program as desired. We have included the computer printout for ultimate development with this report. Drawing No. 2 is a schematic of this system. We have provided one copy of the other computer runs with schematics to the Board of Water Commissioners for your information and use. -5- 5. Cost The total cost of the proposed trunk water main improvements is estimated to be $3,205,000. These estimated costs include 35% for construction contingencies, administration, bonding costs, engineering and legal. The -total estimated cost by sub - district is as follows: Between County Road 64 and T.H. 96 $ 305,000 Between County Road 64 and Bout-well/80th Street $ 360,000 Between Boutwell /80th Street and County Road 12 $ 200,000 Between County Road 12 and T.H. 36 $ 405,000 County Road 15 Loop $ 435,000 Elevated Storage Tank $1,500,000 These cost estimates are for the complete system indicated on Drawing No. 1 with full development_ I hereby certify that this report was prepared by me or under my direct supervision, and that I am a duly Registered Professional EngiueV under the laws of the State of Minnesota. Date: 3���1� Reg. No. W-2 14691 6 e e &e66 6 6 e L- e 68868 1§ 4-e a 6 6e6 88 8686 6 e 1§ 66E EI Waterworks for AutoCAD Water System Analysis Report ❑ Drawing Name: C:\WAT First : WAT Second: Third : Fourth: eeeeeeeeeeee Terse Report eeeeeeeeeeee The analysis uses the Hazen William's formula Iteration termination threshold: 0.005 Maximum number of Iterations; 40 There are: 25 24 2 3 0 0 0 Pipe (s) Node (s) Fixed Source (s) Pumped Source (s) Booster Pump(s) Pressure Reducing Valve(s) Check Valve (s) e*' e*' e- e-e- e-e- e- 86866686Y WARNING: demand at node 17 is outside range of pump curve WARNING: demand at node 16 is outside range of pump curve The program terminated after 36 iterations. The maximum unbalanced head is:2.465776e -05 ft 6e6666666666666eee6eee666666668888& 666666666e666666666666666ee666666 n PIPE DATA n AIM 66666666668666666666666666666e8ee66ee68866666666666666666666e66666Y <----------- - - - - -- Input ----------------- >< - - - - -- Output - - - - - -> # UpNode DnNode Length Diam Rough Flow Velocity Hdloss 1 2 5 2445.60 16.00 130.00 2604.00 4.16 9.13 7 9 10 925.20 12.00 130.00 - 218.60 -0.62 0.14 8 10 11 4786.70 12.00 130.00 - 1219.00 -3.46 17.78 9 11 4 1796.50 12.00 130.00 - 2219.00 -6.30 20.24 10 4 12 613.90 12.00 130.00 - 1852.00 - 5.25 4.95 11 13 12 3989.40 12.00 130.00 2774.00 7.87 67.98 12 3 12 4862.00 12.00 130.00 77.71 0.22 0.11 13 15 23 1490.00 16.00 130.00 - 1266.00 -2.02 1.46 la 16 15 280.00 16.00 130.00 7083.00 11.30 6.67 15 23 2 510.00 16.00 130.00 - 2266.00 -3.62 1.47 17 2 22 1063.90 16.00 130.00 - 5870.00 -9.37 17.89 18 17 22 970.00 16.00 130.00 14314.00 22.84 85.01 19 22 19 1430.00 16.00 130.00 7445.00 11.88 37.34 20 19 20 1319.10 12.00 130.00 1000.00 2.84 3.40 23 21 18 1990.00 16.00 130.00 - 4445.00 -7.09 19.99 24 18 19 140.00 16.00 130.00 - 5445.00 -8.69 2.05 26 21 25 3062.60 12.00 130.00 2078.00 5.90 30.56 27 25 3 3896.10 12.00 130.00 1078.00 3.06 11.53 30 28 29 1474.20 12.00 130.00 1000.00 2.84 3.80 32 21 4 10261.60 12.00 130.00 1367.00 3.88 47.14 33 8 31 5750.77 12.00 130.00 604.10 1.71 5.83 38 31 9 4307.13 12.00 130.00 3239.00 9.19 97.79 36 31 13 1920.60 16.00 130.00 - 3635.00 -5.80 13.30 37 5 8 9229.90 16.00 130.00 1604.00 2.56 14.05 39 32 13 493.50 16.00 130.00 7409.00 11.82 12.77 666666666e6666e66ee6eeee6ee6ee86888668886UM66888668888888686e66666e6� NODE DATA a66e6e6eeee66e6e66666666e6e6e6e6e6e6666e666eee6e666eee66e66666e66e6e6� <------ - - - - -- Input ----------- >< - - -- Output - - - -> ID Elevation Demand Pressure HGL 2 928.00 1000.00 71.40 1093.00 3 913.00 1000.00 41.71 1009.00 4 860.50 1000.00 62.25 1004.00 5 902.50 1000.00 78.49 1084.00 8 928.00 1000.00 61.36 1070.00 9 920.00 0.00 19.97 966.10 10 900.00 1000.00 28.69 966.30 11 900.00 1000.00 36.39 984.10 12 863.00 1000.00 63.31 1009.00 13 903.00 1000.00 75.42 1077.00 15 943.70 0.00 63.33 1090.00 16 943.70 0.00 66.22 1097.00 17 951.70 0.00 105.70 1196.00 18 908.00 1000.00 70.75 1071.00 19 908.50 1000.00 71.42 1073.00 20 908.50 1000.00 69.95 1070.00 21 906.00 1000.00 62.96 1051.00 22 943.00 1000.00 72.65 1111.00 23 928.00 1000.00 70.76 1091.00 25 905.00 1000.00 50.17 1021.00 28 924.50 0.00 108.20 1175.00 29 920.00 1000.00 108.50 1171.00 31 905.00 1000.00 68.80 1064.00 32 905.00 0.00 80.09 1090.00 C268866 6 6688IE66 e8 686LI SOURCE DATA aeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeee ee Z-Z-ed 68 e6 <----------- - - - - -- Input ------------------- 7<- - - - - -- Output --- - -_ - -7 Node # # Pumps Top of Water Estimate Actual Flow Pump Curve 15 0 0 1 1090.00 0 CITY OF STILLWATER, MINNESOTA TABLE OF CONTENTS Page Transmittal 1 Impact of Completed Development 2 Revenue Sources Not Dependent on Property Taxes 3 Actual Market Values Versus Taxable Values 4 State Aid Reductions 9 Fund Type Analyses: Exhibit 1 -B A. General and Special Revenue Funds 12 B. Debt Service Funds - Not Supported By Special Assessments 16 C. Enterprise Funds 17 D. Special Assessment Supported Debt Service Funds 18 Oak Glen 19 Developer Agreements 23 Construction Phases 24 Connection Charges 28 Summary and Recommendations 29 Supplemental Schedules and Source Data Excerpts of Draft of Comp Plan Dated March 30, 1995: Tab 1 Section 3 - Land Use Section 11 -Fiscal Impact State Legislative Action Tab 2 Engineering Cost Estimates and Cost Recovery Calculations: Tab 3 Sanitary Sewer Water Cash Flow Projections - Oak Glen Debt Service: Tab 4 Accountants Report Summary of Significant Projection Assumptions $1,055,000 Bonds of 1994A: No Property Tax Cancellation Exhibit 1 -A Partial Property Tax Cancellation Exhibit 1 -B Transfer from Closed Debt Service Exhibit 1 -C $600,000 Bonds of 1984B Exhibit 2 APPENDIX D CITY OF STILLWATER, IvMgNESOTA PROPOSED EXPANSION STUDY SEPTEMBER 29, 1995 V-- TAUTGES, REDPATH & CO., LTD. CERTIFIED PUBLIC ACCOUNTANTS To the Honorable Mayor and Members of the City Council City of Stillwater 215 N 4th St. Stillwater, MN 55082 -4898 This report was requested by the City to assist in the development plapning process. The most recent draft of the City's Comprehensive Plan contemplates expansion areas, primarily targeted for single family development, to the west of the existing City limits. This report discusses various aspects of the fiscal impacts associated with the proposed expansion- The analysis contained in this report is based on: A. The fiscal impact schedules and tent included in the draft of the Comp Plan dated March 30, 1995. Section 3 and 11 of that draft are reproduced in Tab 1 of this report. B. Engineering construction estimates and proposed cost recovery as provided by SEH, see Tab 3. C. Financial statements and related schedules of the City from 1988 to 1994 and 1995 budget data as provided by the City's Finance Director. D. Parcel information from Washington County which has been imported to a geographic information system for parcel inquiry and report generation. E. Bond resolutions and assessment workpapers as related to the Oak Glen development as used in preparing cash flow schedules, see Tab 4. Our summary and recommendations is presented on pages 29 and 30. We are available to discuss the contents of this report with City staff and the City council. IThank you for the opportunity to be of service to the City of Stillwater. I -V �', Tautges, Redpath & Co., Ltd. September 27, 1995 •• . — . -- ---in F.r�110 • 6121426 -7000 • FAX1426 -5004 • Member of HL8 International To the Honorable Mayor and Members of the City Council City of Stillwater Page 2 Impact of Completed Development The proposed development will impact the City in two financial areas as follows: 1. The completed development will generate property tax and other revenues. These amounts will be available to fund ongoing operating costs of the City such as public safety, public works, and other local government functions. Other revenue will also include utility rate charges for water and sewer operations. 2. The City will likely be required to finance improvements needed to attract the development. These improvements can generally be categorized as follows: a. Improvements such as streets, lateral water, and lateral sewer are construction costs which directly benefit and can be assessed against specific parcels. These type of costs will be referred to as front footage (or unit) assessable improvements throughout this report. b. Improvements such as water towers, trunk sewer, water mains, lift stations, certain storm sewer systems and other constructions costs which benefit an overall system as opposed to parcel specific improvements. These costs will be referred to as area system improvements throughout this report. The cost of area system improvements are often recovered through a combination of connection charges, special assessments and other revenue sources such as property taxes or enterprise fund user rates. It is important to distinguish between the anticipated impact of completed development on ongoing operations versus the short-term impact on financing system improvements. The draft of the Comprehensive Plan discussed the financial support of the first category above which deals with the funding of ongoing operating costs. The result of the method used in that report concluded that the City will have a "net gain" under all scenarios ranging from $1.2 million to $3.8 million per year for Alternative A -2 (which represents full development of the proposed areas totaling 1,457 acres). To the Honorable Mayor and Members of the City Council City of Stillwater Page 3 The above conclusion was based on an overview method of calculating the ratio of total City operating revenue compared to existing operating revenue. This ratio was then applied to estimated new property tax revenue of the proposed development. A number of sensitivity analysis were also included in the report. The worst case scenario was a net gain of $1.2 million. A summary of the "best case" calculation used in the draft of the Comprehensive Plan is as follows: Estimated new taxes to City $2,603,693 Total revenue impact (takes x 4) $10,414,772 Total anticipated expenditures (6,584,994) Net gain to City $3,829,778 The above schedule illustrates that 1) the proposed development will be sufficient to fund increased ongoing operating costs associated with the new development, and 2) that a "net gain" of revenue will be generated from the new development. If such a net gain is made available, then the City would have options for its use including a reduction in the property tax burden of the existing and expanded City parcels. The fiscal analysis portion of the draft of the Comp Plan concludes that "These results show that based on the kind of developmentt envisioned for both the annexation area and infill properties, the City need not weigh fiscal impacts in pursuing its planning and policy objectives." The following section of this report provides further analysis of this conclusion. Revenue Sources Not Dependent on Propertv Taxes A variety of revenue items are not dependent on property tax levels or increased population. Extending anticipated property tax revenue by a ratio of total revenue may result in significantly overstated revenue projections. Additionally, statutory restrictions on uses of certain revenues prohibit general purpose use. Each fund type has dedicated purposes which should be considered individually (see Fund Type Analysis). To the Honorable Mayor _ and Members of the City Council City of Stillwater Page 4 Actual Market Values versus Taxable Values The amount of takes generated by development is based on statutory formulas applied to Estimated Market Values. These values will generally average 90% of the value used for building permit calculations. The draft of the Comp Plan addresses this difference and has based property tax projections on the lower value. We concur with this approach. The estimated construction values however have been provided by landowner and prospective developers of the proposed expansion areas. Variances in the density and average value of the development will impact the tax revenue estimates as presented in the Comp Plan. We recommend that the City monitor actual proposed developments as compared to the anticipated development of the Comp Plan. In a related matter, certain property, in accordance with current State Statutes, may qualify for Green Acre status. This status allows delayed in the collection of special assessments. The statute is as follows: MS 273.111 Agricultural Property Tax. Subd. 3. Real estate consisting of ten acres or more or a nursery or greenhouse qualifying for classification as class lb, 2a, or 2b under section 273.13 subdivision 23, paragraph (d), shall be entitled to valuation and tax deferment under this section only if it is actively and exclusively devoted to agricultural use as defined in subdivision 6 and either (1) is the homestead of the owner, or of a surviving spouse, child, or sibling of the owner or is real estate which is farmed with the real estate which contains the homestead property, or (2) has been in possession of the applicant, the applicant's spouse, parent, or sibling, or any combination thereof, for a period of at least seven years prior to application for benefits under the provisions of this section, or is real estate which is farmed with the real estate which qualifies under this clause and is within two townships or cities or combination thereof from the qualifying real estate, or (3) is the homestead of a shareholder in a family farm corporation as defined in Section 500.24, notwithstanding the fact that legal title to the real estate may be held in the name of the family farm corporation; or (4) is in the possession of a nursery or greenhouse or an entity owned by a proprietor, partnership, or corporation which also owns the nursery or greenhouse operations on the parcel or parcels_ Subd. 6. Real property shall be considered to be in agricultural use provided that annually: (1) at least 33 113 percent of the total family income of the owner is derived therefrom, or the total production income including rental from the property is 5300 plus $10 per tillable acre; and (2) it is devoted to the production for sale of agricultural products as defined in Section 273.13 subdivision 23, paragraph (e). To the Honorable Mayor and Members of the City Council City of Stillwater Page 5 The proposed expansion area has a number of parcels which are classified under green acre deferment status as follows: PIN Primary Owner 19 -030- 2041 -0004 ABRAMOWICZ HENRY J & SHARON 19 -030- 2043 -0001 ABRAMOWICZ HENRY J & SHARON 19 -030- 2042 -0003 ABRAMOWICZ HENRY J & SHARON 19 -030 -20 -34 -0003 ABRAMOWICZ HENRY J & SHARON 19 -030 -20 -33 -0001 RIVARD BURT H & JO ALICE 19 -030 -20 -33 -0002 RIVARD BERT H & JO ALICE 30 -030 -20 -34 -0001 NEWMAN REALTY LTD PARTNERSHI 30 -030 -20 -32 -0003 NEWMAN REALTY LTD PARTNERSHI 30 -030 -20 -31 -0003 NEWMAN REALTY LTD PARTNERSHI 30 -030 -20 -31 -0002 KROENING ROBERT H &PAULA J 31 -030- 2042 -0001 STALOCH JAMES E 31 -030 -20 -34 -0001 BERGMANN ALVIN O & HELEN 31 -030 -20 -31 -0002 STALOCH JAMES E & CECILLO 31 -030 -20 -31 -0001 STALOCH JAMES E 31 -030 -20 -32 -0001 BERGMANN ALVIN O & HELEN 31 -030 -20 -24 -0001 STALOCH CECIL ILO 31 -030 -20 -23 -0001 GADIENT ROSALIE 31 -030 -20 -21 -0001 NEWMAN REALTY LTD PARTNERSHI 19 -030- 2044 -0001 BOWE WARREN P & JANICE M 30 -030 -20 -21 -0003 NEWMAN REALTY LTD PARTNERSHI We recommend that the City anticipate the potential impact of green acre deferments in the proposed development area. If core systems are construction and green acre deferments, continue (or increase) the City will develop two potential funding shortages as follows: 1. The special assessments anticipated from the core system improvements could be delayed indefinitely. The bond payments of debt issued to fund the development will require an alternate funding source (usually City -wide property taxes). 2. The City may be required to extend services to the annexed rural areas without having sufficient property tax base gains if the project does not develop on a timely basis. To the Honorable Mayor and Members of the City Council City of Stillwater Page 6 3. Agricultural property may result in the establishment of a rural service district which would reduce the amount of property taxes generated from the expansion area prior to development. Timing of development is an important concept to consider in planning for the fiscal support of the added property tax base. The draft of the Comp Plan has analyzed the impact of developed areas after all of the development has occurred. The transition periods could have a less favorable fiscal impact on ongoing operations. The City will need to increase personnel and equipment to service the expansion areas at a level comparable to the existing City. The increases may not always match the timing of increased property values. This situation may cause temporary "net losses" related to the proposed expansion (until adequate levels of development occur). Alternatively, the City could allow lower levels of services until the revenue base justifies adding personnel and equipment. To the Honorable Mayor and Members of the City Council City of Stillwater Page 7 Washington County has provided market values and other parcel information for properties within the City as well as properties in the proposed expansion area. The current values of the areas are as follows: Existing Expansion City Area (A2) Market value S 751,031,000 S 31,574,500 Percent of total 96.0% 4.0% Existing Expansion City Area (A2) Tax capacity S 11,760,037 S 470,467 Percent of total 96.2% 3.8% Tax Capacity Values Before Development 4% Expansion Area (A2) 96% Existing City To the Honorable Mayor and Members of the City Council City of Stillwater Page 8 If development occurs as anticipated, the valuations will appear as follows after the proposed development: The above tables indicate that if development occurs as planned, the proposed expansion area will represent approximately 29% of the total tax capacity. The preceding analysis illustrates areas of the A -2 plan which includes a section referred to on the engineering maps as Middle Trunk A. Most of this area is currently developed and may not be included in the proposed expansion. The analysis of proposed assessments and connection charges as indicated in the "Construction Phases" of this report exclude the extension of services to Middle Trunk A and the related revenue. Existing Expansion City Area (A2) Tax capacity $11,760,087 $470,467 Proposed new development 1,953,522 5,189,210 Projected tax capacity 13,713,609 5,659,677 Percent of total 70.8% 29.2% The above tables indicate that if development occurs as planned, the proposed expansion area will represent approximately 29% of the total tax capacity. The preceding analysis illustrates areas of the A -2 plan which includes a section referred to on the engineering maps as Middle Trunk A. Most of this area is currently developed and may not be included in the proposed expansion. The analysis of proposed assessments and connection charges as indicated in the "Construction Phases" of this report exclude the extension of services to Middle Trunk A and the related revenue. To the Honorable Mayor and Members of the City Council City of Stillwatcr Page 9 The proposed residential development in the expansion area is projected to provide between 1200 and 1400 new residential units with tax capacity of between $4 and $4.7 million. This development when compared to the current Oak Glen development is significantly larger. The Oak Glen development (as extracted from Washington County data), has 393 parcels with a total tax capacity of $1.1 million. Based on this analysis, the proposed expansion area is over three times the size of the Oak Glen development. State Aid Reductions Property taxes are now certified to the County on a net basis. HACA had been calculated on a formula which included a factor for the amount of taxes levied (i.e., greater amounts levied generally resulted in greater HACA). As discussed in the Camp Plan, HACA is frozen and has no relation to the amount of taxes levied. Beginning in 1990, the HACA base was established. The HACA base was defined as the previous year's certified HACA aid. To the Honorable Mayor and Members of the City Council City of Stillwater Page 10 The current HACA formula for each unique taxing jurisdiction equals the HACA base multiplied by the growth adjustment factor, plus net tax capacity adjustment plus fiscal disparity adjustment. This legislation is consistent with state -wide trends starting in 1990 which shifted state aids away from cities. A table and graph of this shift for the City of Stillwater is as follows: City of Stillwater, Minnesota $2,500,000 $2,000,000 $1,500,000 $1,000,000 $500,000 $0 1987 City of Stillwater $2,500,000 $2,000,000 $1,500,000 $1,000,000 $500,000 $0 1988 1989 1990 1991 1992 1993 1994 1995B E� HACA ® LGA =Other State Aids –1s— Property Taxes Local Property Government Other State Year Taxes HACA Aid Aids 1987 $1,391,396 $386,858 51,100,662 $83,606 1988 1,590,592 455,937 1,100,648 80,258 1989 1,785,875 463,998 1,287,810 147,360 1990 2,030,843 614,545 846,763 220,997 1991 2,151,990 628,153 690,211 199,170 1992 2,170,616 750,564 729,078 186,934 1993 2,253,289 828,456 692,056 250,044 1994 1,925,154 994,566 778,969 175,407 1995 - budget 2,061,845 1,005,068 807,755 141,665 $2,500,000 $2,000,000 $1,500,000 $1,000,000 $500,000 $0 1987 City of Stillwater $2,500,000 $2,000,000 $1,500,000 $1,000,000 $500,000 $0 1988 1989 1990 1991 1992 1993 1994 1995B E� HACA ® LGA =Other State Aids –1s— Property Taxes To the Honorable Mayor and Members of the City Council City of Stillwater Page 12 Fund Tyne Analyses Operating functions are segregated into special fund types because they are not related to property tax funding levels and/or they are intended to be measured separately for other purposes. Extending revenue on a City -wide basis will result in global conclusions that may not be supported by a segmented analysis. We recommend that the following funds to be considered separately: A. General and S ecial Revenue Funds - These funds commonly account for ongoing expenditures such as general government, public works, public safety, culture and recreation. These areas represent most of the ongoing, salary intense operations of the City and are usually supported significantly by property taxes. The general and special revenue funds of the City of Stillwater have been funded by the following: General and Special Revenue Funds Property State Other Year Tares Aid Revenue Total 1990 52,031,353 51,682,305 $889,628 54,603,286 1991 2,152,150 1,517,534 1,459,703 5,129,387 1992 2,170,663 1,666,576 1,241,501 5,078,740 1993 2,253,287 1,770,556 1,362,386 5,386,229 1994 1,925,171 1,943,942 1,234,105 5,108,218 1995 Budget 2,061,845 1,954,483 1,120,152 5,136,485 To the Honorable Mayor and Members of the City Council City of Stillwater Page 11 The 1994 increase in HACA primarily relates to allocation differences compared to prior years. Starting in 1994, all HACA is coded to the City's General Fund whereas in prior years, the HACA was spread to all funds which had a property tax levy. A restated graph on a basis consistent with prior years is as follows: A continuation of the trend which started in 1990 will result in lower levels of state aid for the City of Stillwater. Such reductions have occurred more drastically in other Metro cities. While the draft of the Comp Plan addresses the further State Aid Reduction, it is difficult to predict the timing and volume of future aid reductions. The general trend to shift the funding of City services to property taxes points to advantages related to an increased property tax base. A summary of legislation impacting city finances is presented in Appendix A Tab 2, of this report. To the Honorable Mayor and Members of the City Council City of Stillwater Page 13 The above table and graph illustrate the funding sources of ongoing operations over the past several years. Expanding the property valuation base of the City through development will most directly and favorably impact the general and special revenue funds based on the following: • Quality increases in development will likely pay its share of incremented expenditures. Efficiencies in fixed costs result in some lowering of per capita expenses, however, this savings must be measured in conjunction with increased expenditures to meet increased service demands. To the Honorable Mayor and Members of the City Council City of Stillwater Page I4 • Representative Minnesota cities with increasing population and a similar mix of commerciaVindividuaVresidential development may provide greater insights into revenue and expenditure bases. The level of services must also be comparable to make these comparisons valid. The City of Woodbury is the fastest growing suburb in the Metro area. The Cities of Oakdale, Cottage Grove and Forest Lake are growing Washington County Cities. Increased development of these four cities has not drastically decreased or increased per capita property taxes related to funding General and Special Revenue Fund operations from 1990 to 1994 as follows: General and Special Revenue Funds City of Oakdale City of Woodbury Per Capita Per Capita Population Year Population Revenue Taxes Expenditures 1990 20,075 $320 $175 $236 1991 21,200 336 178 264 1992 23,700 345 157 281 1993 23,700 332 173 349 1994 26,900 384 166 348 General and Special Revenue Funds City of Oakdale Per Capita Year Population Revenue Taxes Expenditures 1990 13,126 $239 $76 $194 1991 19,735 216 73 189 1992 20,574 237 73 200 1993 22,192 232 81 210 1994 22,933 239 80 217 To the Honorable Mayor and Members of the City Council City of Stillwater Page 15 The above examples indicate that per- capita taxes remain relatively constant even during periods of increased development. The above tables may be compared to the City of Stillwater over the same period as follows: General and Special Revenue Funds Revenue Funds City of Cottage Grove Citv_ of Forest Lake Per Capita Year Population Revenue Taxes Expenditures 1990 22,935 $301 $122 $290 1991 23,715 292 122 303 1992 24,765 308 123 292 1993 25,500 318 126 326 1994 23,019 287 122 305 The above examples indicate that per- capita taxes remain relatively constant even during periods of increased development. The above tables may be compared to the City of Stillwater over the same period as follows: General and Special Revenue Funds Citv of Stillwater Citv_ of Forest Lake Per Capita Year Population Revenue Taxes Expenditures 1990 5,833 $294 $127 $286 1991 6,007 283 134 276 1992 6,093 311 132 278 1993 6,242 304 126 306 1994 6,397 290 123 347 The above examples indicate that per- capita taxes remain relatively constant even during periods of increased development. The above tables may be compared to the City of Stillwater over the same period as follows: General and Special Revenue Funds Citv of Stillwater per Capita Year Population Revenue Taxes Expenditures 1990 13,520 S - $ - S - 1991 13,970 367 154 329 1992 14,593 348 149 332 1993 15,001 359 150 342 1994 15,350 333 125 341 1995- Budget 15,350 335 134 358 To the Honorable Mayor and Members of the City Council City of Stillwater Page 16 B. Debt Service Funds - Not support by Special Assessments. These funds commonly are established to pay the debt service of projects which benefit the City as a whole (ex: City Hall expansion, Park acquisition, etc.). This type of debt service fund is typically property tax levy supported. Projects funded by such general obligation debt are approved individually and independent of population growth_ An increased tax capacity base will however reduce the overall tax rate impact of debt associated with these types of future projects. The draft of the Comp Plan concludes that "based on the kind of development envisioned for both the annexation area and infill properties, the City need not weigh fiscal impacts in pursuing its planning and policy objectives." We agree with this conclusion as it relates to ongoing operations. The per capita property taxes for ongoing operations tends to remain constant based on comparisons of other growing cities in the previous section. This is a favorable indicator because inflation would normally increase the per capita amounts. We caution, however, with respect to the costs associated with core systems needed to support the new development (see special assessment supported debt service funds). To the Honorable Mayor and Members of the City Council City of Stillwater Page 17 C. Enterprise Funds - Are funds established to account for operations which are funded primarily by user rates. The City of Stillwater currently does not set rates at levels sufficient to generate profits which would be available for other City purposes in the form of transfers out. This is not an uncommon practice. Increased development should not be relied upon to generate excess profits if the rate philosophy of the City continues as it has in the past. A comparison of rates with other Metro Cities is as follows: The expansion of systems may create pressure to increase user rates particularly water and sewer rates to subsidize the core system improvements required for the development area. The funding source of these core system improvements has not been finalized. The City's consulting Engineer has typically recommended cost recovery plans for such core system improvements (see later section). Residential Quarterly Billing Based on 22,000 Gallons of Usage Effective City Water Sewer Total Year Arden Hills $45.98 $53.95 $99.93 1995 Bloomington 34.10 19.40 53.50 1995 Coon Rapids 21.56 35.00 56.56 1995 Cottage Grove 27.60 43.12 70.72 1995 Fagan 30.00 41.20 71.20 1995 Inver Grove Heights 39.90 45.40 85.30 1995 Little Canada 37.62 47.30 84.92 1995 Mahtomedi 35.29 68.24 103.53 1995 Maplewood 37.06 41.65 78.71 1995 Minnetonka 22.00 33.00 55.00 1995 Mounds View 26.40 44.00 70.40 1995 New Brighton 16.28 42.90 59.18 1995 Oakdale 26.20 55.48 81.68 1995 Shoreview 22.82 37.51 60.33 1995 South St. Paul 14.96 59.62 74.58 1995 St. Paul 37.06 64.99 102.05 1995 Stillwater 27.50 64.20 91.70 1995 Vadnais Heights 23.76 42.00 65.76 1995 White Bear Lake 25.20 52.20 77.40 1995 Woodbury 16.40 44.49 60.89 1995 The expansion of systems may create pressure to increase user rates particularly water and sewer rates to subsidize the core system improvements required for the development area. The funding source of these core system improvements has not been finalized. The City's consulting Engineer has typically recommended cost recovery plans for such core system improvements (see later section). To the Honorable Mayor and Members of the City Council City of Stillwater Page IS D. Special Assessment Supported Debt Service Funds - These debt funds are established to collect special assessments from benefiting property owners in project areas. Such assessments are planned to be available to pay the debt service of bonds issued to finance the project. Anticipated cash flows are scheduled at the time of issuance of the bonds. Differences can, and usually do, occur based on future events such as a) delinquent special assessments, b) prepayment of assessment which are invested at interest rates other than the special assessment rate, 0 other anticipated collection of revenue occurs at a different pace than expected. When such differences occur, the City may experience favorable or unfavorable variances which impact the City as a whole. An evaluation chart of the status of debt service funds is as follows: Condition A Fund balance plus deferred revenue meets or exceeds bonds payable. Cautions 1. Is the City experiencing favorable collection rates for special assess- ments? 2. Are anticipated investment interest rates earned on prepayments ade- quate to replace assessment interest? 3. Is the timing of receipts sufficient to meet bonded debt payments as they become due? 4. Are significant portions of assess- ments not scheduled for collection (green acres, tax forfeit,etc.)? 5. Is arbitrage or negative arbitrage an issue? The debt service fund is clearly adequately funded. Plan for eventual use of surplus. Condition B Fund balance plus deferred revenue is less than bonds payable. Questions i _ Are sufficent future assets scheduled (such as property taxes) to meet bonded debt payments? 2. Are cash assets sufficient to generate investment earnings? 3. Are transfers or other funding sources available? 4. Are there future assets to pledge such as assessments, MSA allct- ments. etc.? The debt service fund is clearly not adequately funded. Plan for alter- native funding (taxes, transfers. other sources). Variables and possible outcomes are too diverse. Prepare projections to analyze possible scenarios and oolions. Conclusion 1 Conclusion 2 Conclusion 3 To the Honorable Mayor and Members of the City Council Ciry of Stillwater Page 19 The draft of the Camp Plan refers to infrastructure related to new development as follows: Other important findings: New development pays for itself in terms of infrastructure (new streets, sewer, water lines). The only cost to the City relates to contributing to the upgrade of existing deficient streets and providing a new park and trails. We recommend the above conclusion be revisited and that the City proceed cautiously in ordering core system improvements. Some development does not pay for its entire infrastructure costs on a timely basis and in some cases not fully. When this condition exists, the City's general tax base may be relied upon to pay for the development in the form of increased property taxes to both new and existing property owners. If the area system improvements required in the development area will be paid by developers in cash and in advance of proceeding with the construction, then the City eliminates the risk associated with financing the development. If, on the other hand, area system improvements will be ordered with some uncertainty regarding the amount and timeliness of revenue collection, then the City should consider the risks associated with ordering area -wide improvements. The City has had a significant development project fail to meet the anticipated timing for collection of special assessment and other related revenues. Onk Glen The Oak Glen development was financed by the Improvement Bonds of 1934. That bond issue was structured based on developer commitments and anticipated assessment revenue. The anticipated cash flow schedule was not met based on: 1. Slower pace of development then anticipated. 2. Delinquent and tax forfeit assessments. 3. Failed developer guarantees. 4. Prepayments of assessments which could not be reinvested at rates comparable to the special assessment rates. To the Honorable Mayor and Members of the City Council City of Stillwater Page 20 Although the City successfully resolved the temporary funding shortfalls associated with the Oak Glen development, the City devoted significant administrative efforts including the following: a. Identifying the revenue shortfall. b. Pursuing all available collection alternatives. c. Special state legislature to allow for reassessment of project costs. d. Issuing a 1994 financing bond issue designed to lower interest costs and establish general property tax support of the restructured debt. These scheduled property tax levies total $1.4 million. The City's efforts to overcome the difficulties associated with the Oak Glen project are commendable. The City has a financing plan in place to assure timely payment of scheduled debt and to minimize the general property tax burden on the City. Exhibits IA to 1C present anticipated cash flows of the $1,055,000 Improvement bond of 1994 A 1994 as follows: Schedule 1 -A - A cash surplus is anticipated if all schedule property taxes are levied starting with collection year 1997. Schedule 1B - The scheduled property taxes may be partially canceled (approximately 50 %) and the fund would continue to have sufficient cash to meet debt obligations. Exhibit 1C - The $600,000 Bonds of 1934 -B are projected to have a surplus available of $350,000 at December 31, 1995. (see Exhibit 2) This amount may be used at the discretion of the City Council. Two options include the following: a) transfer the remaining balance to the 1994A Bonds to further reduce required property taxes as presented in Exhibit 1C b) use the remaining balance to pay for core system improvements of the proposed expansion area. To the Honorable Mayor and Members of the City Council City of Stilhvater Page 21 The Oak Glen scheduled property tax levies are spread to all properties within the City. This type of property tax requirement occurs when development does not "pay for itself' through special assessments, connection charges and other revenue sources on a timely basis. The amount of property taxes actually required is uncertain at this time and the City has canceled the 1995 and 1996 levies. Any property taxes required after 1996 (for a project which began in 1981) will, however, be spread on an expanded property tax base. The net impact of property taxes needed to pay for the debt associated with those improvements will be spread on the following valuation: Market Values Amount Percent Oak Glen 565,072,100 3.7% Rest of City 678,835,400 90.4% Total 751,081,000 100.0% Tax Capacitor Values Amount Percent Oak Glen $1,092,107 9.3% Rest of City 10,667,930 90.7% Total 11,760,087 100.0% Tax Capacity Values Oak Glen 9.3% Rest orCity 90.7% sivawXud aotnuas igap palnpagos glinA lualsisuoo alnpagos E uo moo iou swop luawdolanap Ji panaigoE aq iou Xew leoS legl uagi `, jjasit ioj ALd„ luawdolanap ant'q of si lualui s,Aito aqi jl -palaoueo aq Aum saxel Xv )doid palnpagos aqi uagi `aotnlas lgap ioj pasn anuana.I Suiilnsw aqi put apm an suotloauuo33i 'sainal xei Xvadoid palnpagos su spuoq aql joj ueld Suioueug aql ui papnloui puu palnsuaw (luounuoo sr aosnos anuanas a Ego uotioauuoo aqZ -paioalloo si anuanaJ se ,KIlenuuu iced ui ao alogm ui palaoueo aq Am satnal palnpagos asagZ -sluawXud aotuas lgap aNuw o1 saolnosai jo Xlijigeltene Alawii asnsse of satnal xvi Xiladoad palnpagos apnlout ua}Io suoiinlosal puoq `saolnos anuanaa jo Sunup aqi of se xiuiei_taoun si aiagl uaghl -uiEijaoun si ualu ivawdolanap aqi wo13 anuana.I alenbopu jo Xliiigj!EAU XIawil aqi legs so Xiio a iiiuo aqi sigauoq luawdolanap pappu aqi mqi paurw_talap anaq {aqi asneoaq aoinos Ruipunj sigl asn sailio XuLW 'sivawanoldwi waisKs aJoo puns of sari 4vz)doid asn of Xoilod algEidaoat' uu si 11 -sax-el fqjadoid pasuwoui gSnonli (wagl igauaq Xiloasip lou op gotgM) sivawanoldwt jo isoo aqi iLoq Xew ssaumo Xi_tadold XI!D Suiutewai aqi uagi `sanit'n.Kiioedeo xul ui sasnloui luototgjns of loud pwinbw an saxel i,vadoid31 -sluawdolanap Bans 11E ioj uodn pailal aq iou pinogs alaldwoo xlleilut'isgns si luawdolanap pun sainal xoi Xvodold pwinbas Xtjap o1 AlipgE s,Xlio aql -slao.Ed Aiio lagio jo uopinq x721 Al iodoid oql aseaaoui lou OP sivawanoldwi ualg oleo oql ioj AEd of paiinbal sainal x721 kpadold pappE aql `Xiio aql 3o anlEn Alioedeo xul Ieloi aqI JO %E'6 sluasaJdal uolg Nuo asneoag -anal x721 Xpado id algiloalloo 17661 IElol agl3o %S AIalewtxosddu sluosasd.-u anal sigZ -(suoilEllaoueo IEiired aiojaq) 000`LCIS aSElanE carnal xul Aisadold pasodoid jo lunowu aqZ ZZ a3ed lolu,"llps jo kll:) 1!3unoJ X3io otpjo slagtuaW put, loXuW alquiouoH aql 01 sladolanap of Xpj!q!suodsal ioafold uoiioruisuoo iaieali? agi ij!gS {VuiXnq awog nnau sa smoos►p gatgm saieu isalaim ui sasuanui se Bons) �IiD agi pus ladolanap agi jo ioliuoa iaalip agijo apisino ale ivawdolanap pakelap loj suosew agi uaUO -pauueld ss lnoao iou saop ivawdolanap J! 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