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7.0. EDSR 03-11-2002 • Item # 7 City of Elk River MEMORANDUM TO: Economic Development Authority FROM: Michele McPhersorector of Planning DATE: April 8, 2002 SUBJECT: Member for the Comprehensive Plan Update Task Force At its March 11,2002 meeting,the City Council accepted a proposal by Hoisington Koegler Group, Inc. to assist city staff with the update of the city's Comprehensive Plan. A task force will guide this Comprehensive Plan update and we are looking for members from each • of the city's commissions, as well as the Chamber of Commerce and the River's Edge Downtown Business Association to be on the task force. Attached for your review is the proposed work plan submitted by Hoisington Koegler Group,Inc. The work plan is detailed and will inform you as to the scope of work and the number of meetings required by the task force. It is anticipated that this process will take 12 - 15 months,however,HKGi is aware that both staff and the City Council prefer shortening the time line if at all possible. Staff requests that two members of the Commission, a primary and an alternate, be identified to serve on the task force. The alternate will serve in the event that the primary member cannot attend the task force meetings. If you have questions regarding the Comprehensive Plan update,please feel free to contact me at 441-4902. • S:\PLANNING\COMPPLAN\4-8EDA memo.DOC iUpdating the Comprehensive Plan City of Elk River March 6, 2002 Contents Introduction 1 Assumptions 1 Work Program 2 1 Define the Context 2 2 Analyze Trends, Forces and Issues 4 3 Establish a Community Vision 5 4 Explore the Possibilities 6 5 Define How Elk River Will Look and Function 7 6 Develop the Plan and Strategies/Seek Approvals 8 7 Document the Results 10 Budget 10 Schedule 12 Introduction The following document describes the proposal of Hoisington Koegler Group,Inc. (HKGi)for assisting the City of Elk River(City)with the updating of the Comprehensive Plan(Plan). The • Work Program has been prepared based on discussions with Planning Commission and City Staff, knowledge of the community and firm experience in community planning. The Work Program contains a detailed explanation of the tasks and work products for this process. The Work Program serves as the basis for the Budget and the Schedule. The Work Program blends what we have learned about Elk River with our experience in comprehensive planning. Assumptions The Work Program for updating the Comprehensive Plan is based on the following assumptions. Changes in these assumptions may alter the Work and the Budget. • The HKGi approach places a high priority on interaction with residents, businesspersons and community stakeholders, allowing those who participate the opportunity to shape planning concepts and to evaluate proposed directions throughout the planning process. • The approach to the work,as described below,also emphasizes implementation strategies as a part of the process of defining a preferred plan. HKGi's experience shows that an understanding of implementation feasibility framed concurrently with the development of plan options leads to an enhanced ability to implement the plan. Waiting until the physical planning is complete too often results in plans that lack financial or market reality. We believe that by more directly integrating market and finance realities with • physical planning efforts,the final plan more readily moves toward implementation. Work Program (2/21/02) • • It is our understanding that the City will establish a Task Force to oversee the preparation of the Plan. The Work Program identifies a number of meetings required to obtain Task Force input and direction. The Work Program also includes Planning Commission and City Council updates at various intervals on major policy issues and plan progress. • Unlike past planning projects, City Staff will not be required to lead the process. The use of outside consultants allows staff to play a more meaningful role in updating the Plan while continuing to efficiently manage day-to-day operations. City Staff provide an important source of local knowledge and technical expertise. This Work Program assumes that City Staff will be responsible for facilities scheduling and notices required for all meetings. City Staff will distribute pre-meeting information packets as may be needed. If possible,HKGi will provide City Staff with printed or electronic files for reproduction prior to each meeting. City Staff will be responsible for the distribution or publication of materials prepared by HKGi under the Communications Plan(Task 1.9). • The Work Program sets forth a specific number of meetings related to the planning process. In addition to the meetings listed in the work tasks, up to six(6)meetings with City Staff are included in the Work Program. Other meetings required by the City will be treated as an additional service. • It is our understanding that the City is considering an update to the Comprehensive Transportation Plan by the City's engineer. HKGi will work closely with H.R. Green on transportation planning. Land use and transportation issues are closely related, as the pace and form of development create travel demands. The location of development • determines the location and size of roads. Work Program 1 Define the Context The purpose of this task is to help HKGi gain a thorough working knowledge of the community and to identify the existing character and patterns that define the City of Elk River.Unique and special attributes of the community will be identified which will establish the groundwork for the remainder of the planning process. 1.1 Assemble base mapping and GIS Data Accurate and usable mapping plays an essential part of the comprehensive planning process. It is our understanding that the City Engineer(H.R. Green)will have completed work on a current City base map prior to the start of the planning process. This Work Program assumes that the City will provide base mapping in electronic form compatible with ArcView GIS software. This data should include parcel level mapping with associated parcel attribute information from Sherburne County. HKGi will work with City Staff and H.R. Green to create the most efficient and cost-effective approach for assembling map and GIS data. ©Hoisington Koegler Group, Inc. Page 2 Work Program (2/21/02) • 1.2 Collect and review relevant plans and studies This process seeks to avoid reinventing the wheel. HKGi will review all relevant plans and studies to understand current goals and policies and find data that can be used in the planning process. Among the plans and studies to be reviewed are : • Comprehensive Plan(1995) • Comprehensive Transportation Plan(1995) • Master Park and Recreation Plan(1997) • Key Financial Strategies(2002) • Strategic Industrial Marketing Plan • Results of Downtown Visioning Process(2002) • Northstar Commuter Rail Corridor planning documents • Pavement Management Program(2001) • Historic preservation plans and policies • Housing Plan 1.3 Make moratorium recommendation In discussing the approach to updating the Comprehensive Plan,the Planning Commission discussed the need for a moratorium on new residential subdivisions during the planning process. HKGi will review the existing lot inventory and other relevant information to gain a better understanding of the implications of this decision. HKGi will present an evaluation of options to the City Staff and City Attorney. Following Staff/Attorney input, a recommendation will be presented to the Task Force who will then make a recommendation regarding implementation of a moratorium to the Planning Commission and City Council. 1.4 Conduct a tour of Elk River Representatives of the community will be asked to show us Elk River. While gathering qualitative information about the community,the tour allows the planning team to hear anecdotal information about Elk River. 1.5 Conduct Task Force kick-off meeting HKGi will conduct an orientation session for the Task Force. The purpose of this meeting will be to prepare Task Force members for their role in the planning process. The meeting agenda will include a brief primer on comprehensive planning, a thorough review of the Work Program and the establishment of the project calendar and meeting schedule. Agreement on the initial meeting schedule will be an important factor in keeping the process on track during the summer months. HKGi will provide each Task Force member with a three-ring binder containing a set of basic documents concerning the planning process. Subsequent handout materials can be added to the notebook to make a planning reference book. 1.6 Conduct a windshield survey of the City The survey will be used to complete mapping of existing land uses and distinctive elements of Elk River. 1.7 Complete base mapping HKGi will prepare a series of maps illustrating existing conditions. The base maps will include: existing land use, environmental resources,transportation systems including jurisdictions and ©Hoisington Koegler Group, Inc. Page 3 Work Program (2/21/02) functional classifications,utility service areas,public lands, and existing parks and open spaces. All maps will be produced in ArcView and will include Metadata documentaries. 1.8 Meet with City Staff Meet with City department heads to make sure that all City staff members have access to the planning process and can begin to contribute from the beginning. This session will also include a discussion of issues. 1.9 Conduct Public Meeting#1 It is important to foster strong community participation in the planning process from the outset. In the overall timetable,the first public meeting should occur in May. This step helps to engage the public before summer. The purposes of Public Meeting#1 will be to orient the public to the planning process and to learn about Elk River from a community perspective. HKGi will assemble written materials for the session and will prepare general analysis graphics for reference by attendees. HGKi will prepare a written summary and PowerPoint presentation on input received from this meeting. 1.10 Communications plan HKGi will prepare a monthly"update sheet"on the Comprehensive Plan. The update sheet will be used to inform the community about meetings, findings and other aspects of the planning process. Text and graphics will be provided in electronic format acceptable to the City. The City will be responsible for publication of this information in City newsletter, in local newspaper, on City website, and on cable television. 1111 1.11 Meet with Task Force This meeting of the Task Force will examine the results of Public Meeting#1, discuss plans for Public Meeting#2 and preview Task 2. Deliverables— Task 1 • Base map for comprehensive planning process • Task Force reference notebook • Written and PowerPoint summary of Public Meeting#1 • Communications plan • Communications update sheet(s) 2 Analyze Trends, Forces and Issues The purpose of this task will be to analyze trends and to identify issues that will need to be resolved during the course of the planning process. 2.1 Assemble data HKGi will assemble demographic and economic information needed to analyze primary trends and forces shaping the future of Elk River. This task will build upon the data gathered through the recently completed Key Financial Strategies. 2.2 Analyze data and identify key trends • HKGi will analyze changes in demographic and economic characteristics of Elk River. The purpose of the analysis is to understand how Elk River has changed over the past 20 to 30 years ©Hoisington Koegler Group, Inc. Page 4 Work Program (2/21/02) • and to look for factors to consider in planning for the future. HKGi will prepare a PowerPoint presentation illustrating the results of this analysis. 2.3 Prepare population and employment projections HKGi will prepare 20 year projections of City population and employment. The projections will illustrate the implications of alternative development scenarios. 2.4 Calculate land demand HKGi will use the population projections to calculate the land demand based on varying density assumptions and land use policy options. 2.5 Conduct interviews HKGi will conduct interviews of key"community leaders" in Elk River(up to 12 contacts). Community leaders may include either public or private sector individuals who reside in or do business in Elk River. These interviews.offer an opportunity for the early involvement of boards and commissions not otherwise represented on the Task Force. Other potential parties for involvement include Elk River school officials,county commissioner, major employers, residential neighborhood association leaders,business owners and civic leaders. The purpose of the meetings is to allow these individuals the opportunity to discuss the community outside of the normal public meeting forum. In past comprehensive plans,HKGi has found that information provided during these discussions is more candid and objective because we are looked at as a third party rather than being a"representative"of the City of Elk River. • 2.6 Meet with Task Force HKGi will meet with the Task Force to review the results the community leader interviews, demographic analysis and population projections. 2.7 Deliverables— Task 2 • PowerPoint presentation on demographic and economic trends • Technical memorandum on population projections and land demand analysis • - Summary of community leader interviews • Monthly communications update sheet 3 Establish a Community Vision The purpose of this task will be to define the elements of a vision for the City of Elk River. The vision will address community's aspirations for what Elk River should be in the future and what actions will be important in realizing the community's shared vision. 3.1 Conduct Public Meeting#2 HKGi will design and conduct a public meeting to help frame the elements of the vision. The format for this session will be interactive small and large group discussions with a specific focus on defining"What do residents want Elk River to be in 2012 and 2022?" This meeting also provides the opportunity to follow-up and clarify issues raised at Public Meeting#1. A written summary of meeting results will be prepared. HKGi will assemble written materials for the • session and will prepare general analysis graphics for reference by attendees. ©Hoisington Koegler Group, Inc. Page 5 Work Program (2/21/02) 3.2 Prepare draft vision statement HKGi will prepare a draft vision statement. The vision will be assembled from the public input and information gathered to this point. The vision will be used to guide and direct the assembly of the Comprehensive Plan. 3.3 Conduct Task Force Workshop The draft vision statement will be presented for review and modification by the Task Force. 3.4 Communicate the Vision HKGi will work with Staff to find the appropriate vehicles for communicating the draft vision with the community. HKGi will prepare a written summary that can be published as a newspaper advertisement, in the City's newsletter and on the City's web site. Deliverables— Task 3 • Written and PowerPoint summary of Public Meeting#2 • Complete and summary of vision statement • Monthly communications update sheet 4 Explore the Possibilities This task will develop and evaluate a range of general growth options and scenarios that address future growth in Elk River. • 4.1 Create development concepts HKGi will create at least three alternative development concepts. These alternatives will not be detailed plans,but rather demonstrations of possible patterns, organizations and connections within the community. These alternatives will be presented in a variety of forms including drawings, illustrations, diagrams,plans and other graphics. Vignettes may be developed to show the way aspects of each concept would satisfy various elements of the vision for the community that was established during the vision phase of the plan. These concepts will illustrate potential land use patterns and the integration of environmental and transportation systems. The alternatives will address major issue areas that have been identified including but not necessarily limited to: • Development along Highway 10 and Highway 169 Corridors • Protection of wetlands,trees and other natural resources • Mixed-use versus suburban-style development patterns • Types and densities of residential land uses • Development plans and policies for the urban fringe area • Land consumption based on the pace and form of development • Potential industrial growth areas • Residential and commercial redevelopment areas • • Reclamation of mineral extraction areas • Preservation and use of historic structures • Transit oriented development opportunities ©Hoisington Koegler Group, Inc. Page 6 Work Program (2/21/02) III • Location of public facilities • Traffic • Municipal utilities 4.2 Identify general goals and policies HKGi will recommend general goal and policies associated with each of the future growth alternatives. Policies will relate to land use,transportation, environmental resources,public services and facilities,parks,housing and community image. The goal/policy statements will note if the statements reflect current Comprehensive Plan policies, contain modifications of current policies, or reflect new policies. 4.3 Conduct concept review workshops HKGi will design and conduct two workshops to present and receive feedback on the alternative development concepts. The first workshop shall be with the Task Force. The second workshop will include Task Force, Planning Commission, and City Council. These sessions will include a discussion of the concepts and patterns depicted by each alternative,their"fit"with the vision elements that were identified by the community,and broad based policy implications that are implied by each alternative. 4.4 Test the alternatives One objective of the City in undertaking an update of the Comprehensive Plan is to consider the "sustainability"of future development patterns. In this task,HKGi will test the implications of the various alternatives. This test will include an initial evaluation of servicing capabilities and • traffic issues. The testing will include a general review of the financial implications(cost of providing infrastructure and services)of each of the identified alternative land use concepts. The examination will consider the required pattern of sanitary sewer, storm water management,water, electric and transportation services necessary to support each of the land use alternatives to ensure that they represent viable options. 4.5 Gain approval to proceed HKGi will conduct a workshop meeting with the Task Force to review the outcome of this Task and to gain approval to seek broader community input on each of the alternatives. Deliverables— Task 4 • Written and graphic description of development concepts • Statements of goals and policies • Technical memorandum describing the results of the"testing" analysis • Monthly communications update sheet 5 Define How Elk River Will Look and Function The purpose of this task will be to determine which of the development alternatives or blend of the development alternatives best fits the City of Elk River and the vision that has been articulated by the community's residents. 5.1 Create evaluation criteria 0 HKGi will prepare a method of evaluation to facilitate the selection of appropriate options and policy directions. ©Hoisington Koegler Group, Inc. Page 7 Work Program (2/21/02) • 5.2 Conduct community meetings(#3 and#4) HKGi will conduct two (2)community neighborhood meetings to present the future growth alternatives and to seek public comment. Written summaries of each meeting will be prepared. 5.3 Select preferred alternative HKGi will conduct one workshop with the Task Force,Planning Commission and City Council to review the input received and to identify a preferred future growth alternative. Deliverables— Task 5 • Written summary of community meetings • Written and graphic materials used to facilitate group decision making process • Monthly communications update sheet 6 Develop the Plan and Strategies/Seek Approvals This task includes detailing the preferred future growth alternative and the policies associated with that alternative and the documentation, in draft form,of the Comprehensive Plan. 6.1 Prepare draft plan HKGi will prepare a draft of the Comprehensive Plan. The Plan will include the following elements: • A. Introduction/Purpose B. Forces that impact Elk River- strengths,weaknesses, opportunities and threats C. Vision D. Trends and Projections E. Plan Elements including: 1. Land Use Plan Element- Goals,policies,plans, maps and supporting text that depicts the desired future land use plan. 2. Transportation Element - Goals, policies, plans, maps and supporting text related to the community's total future transportation system including road, rail, transit and bicycle/pedestrian circulation. The transportation element of the plan will include recommendations pertaining to highway corridors, the arterial/collector street system, transit services and facilities, traffic signals, river crossings and railroad crossings. The Comprehensive Plan will incorporate by reference any updated Transportation Plan. 3. Housing Element - Goals, policies, text and graphics related to future housing needs within the community. The housing element will provide a plan for maintaining housing affordability while emphasizing a range of housing choices. It will specifically address future housing patterns by examining suburban subdivision practices as well as other forms of development that may result in more "traditional" neighborhoods. It will be coordinated with the land use element of the comprehensive plan to ensure that an adequate supply of land exists to accommodate future residential growth. • 4. Community Facilities Element - Goals, policies, text and graphics related to the future need for community facilities including but not limited to the library, fire stations, and community center. ©Hoisington Koegler Group, Inc. Page 8 Work Program (2/21/02) • 5. Utilities Element- Goals, policies,text,plans and graphics related to the future provision of water, sanitary sewer, electric, and storm sewer. The basis for the utilities element of the plan will be information available from the city. 6. Park and Recreation Element - Goals, policies, text, plans and graphics outlining Elk River's future park and open space system. This element will include the identification of future park sites and the integration of open space and natural areas as part of the Elk River park system. It will include a trail plan accommodating movement throughout the community as well as providing connections to adjacent existing and planned regional trails. 7. Environmental Resources Element - Goals, policies, plans, text and maps depicting significant natural resources in Elk River and the surrounding area and their impact and importance to the future development of the community. 8. Community Image Element- Goals, policies, text and graphics pertaining to a consistent image for the City of Elk River. This element will contain general appearance guidelines for the downtown area and major roadway corridors. It will also address community entry points and other physical improvements that support an identified theme. 9. Community Development Plans and Studies—Goals,policies,text and graphics to update portions of the economic development process and to address historic preservation issues. This section will also incorporate results of the visioning process for the Downtown. 10. Goals,policies,text and graphics pertaining to future annexation position for the City of Elk River. F. Implementation strategies including: 1. Growth management and land use controls 2. Transportation 3. Public services 4. Parks and open space 5. Housing 6. Community image 7. Financial strategies(links to financial management plan) 6.2 Present draft plan HGKi will conduct up to three(3)workshops to present and receive comments on the draft Plan. HKGi will work with staff to design the specific approach on how best to involve the Task Force, Planning Commission, City Council,Utilities Commission,HRA,EDA, and other City boards and commissions. 6.3 Modify the draft A revised draft of the Plan will be prepared to incorporate the changes identified by the decision maker review. • ©Hoisington Koegler Group, Inc. Page 9 Work Program (2/21/02) • 6.4 Obtain public input HKGi will use two forums to seek public input on the draft Plan. An open house provides a less formal and less threatening means of presenting the Plan for public comment. HKGI will also facilitate the required public hearing on the Plan. 6.5 Review public input HKGi will summarize the input received at the open house and public hearing. Recommendations on Plan modifications(if needed)will be made. 6.6 Reach consensus on final Plan HKGi will conduct one workshop to review public input and proposed Plan modifications. This workshop will be used to finalize the Plan. Deliverables— Task 6 • Text and graphics assembled in draft plan document • Written, graphic and PowerPoint(if any)materials used to present the Plan. 7 Document the Results The purpose of this task will be to document the final Comprehensive Plan update after it has been adopted by the City Council. Subtasks will include: 7.1 Prepare final text and graphics. • 7.2 Prepare camera-ready original copy for subsequent printing by the City. 7.3 Prepare summary with text and graphics for website 7.4 Provide computer disk including Plan in Microsoft Word and all AutoCAD and Arc View graphics information. Deliverables— Task 7 • Final work products as described above Budget The preparation of the budget for a planning process is a balancing act. The budget seeks to provide the services required of this undertaking while bearing in mind the cost of the services. Three basic factors influence the Work Program and Budget. Nature of Elk River—Elk River presents a wide range of planning issues. Key issues include the pace, location,form and management of growth,maintaining the vitality of existing neighborhoods,preserving the natural environment,managing investments in public services and improvements. The size of the City increases the complexity of planning from data collection to the creation of development scenarios. The planning process is designed to allow sufficient time to consider all of the factors that shape your future. Interactive Process—The planning process is not one where HKGi gathers the data, goes to the office and returns with"the Plan". A successful process is interactive,where the ideas of the ©Hoisington Koegler Group, Inc. Page 10 Work Program (2/21/02) • consultant are tested and refined to find the best fit with Elk River. This interaction occurs through a variety of meetings. The meetings are used to convey information, present planning concepts, gain feedback and formulate directions. The total meetings contained in the Work Program are 11 decision maker workshops, 6 public/community meetings and 7 meetings with staff Budget Approach—The Budget in this proposal is a not-to-exceed amount to perform the tasks in the Work Program. This approach means that the Budget must account for the potential unknown elements of the planning process. The time included to complete each task is estimated based on our past experience and knowledge of Elk River. Regardless of our experience,the Budget remains based on estimates. The actual effort is only known as the process evolves. HKGi will complete the tasks described in the Work Program for an amount not to exceed $87,340. This figure includes staff time and expenses. HKGi will bill the City on a monthly basis as work is performed. The proposed budget is distributed as follows: Task Budget 1 Define the context $12,100 2 Analyze trends, forces and issues 7,050 3 Establish a community vision 5,190 4 Explore the possibilities 22,480 • 5 Define how Elk River will look and function 8,880 6 Develop the plan and strategies/seek approvals 25,580 7 Document the plan 3,560 Expenses 2,500 TOTAL $87,340 This Budget accurately reflects the effort required to undertake the tasks contained in the Work Program. We recognize that the Comprehensive Plan must also fit within the financial realities of the City. The City can reduce the Budget by eliminating tasks from the Work Program. Potential changes include the following: 1. Shift base mapping to City/HR Green $1,680 2. Delete community tour(Task 1.3) 940 3. Delete one(1) community meeting(Task 3.1 or 5.2) 2,080 4. Delete community leader interviews(Task 2.5) 1,530 5. Delete communications plan(Task 1.9) 840 Additional reductions can be considered with the realization that they may alter the effectiveness of the planning process. • ©Hoisington Koegler Group, Inc. Page 11 Work Program (2/21/02) Schedule The Work Program spans a 12 to 15 month period. The chart below illustrates the projected schedule for the planning process. • ° E ° s E ' 2 >` t a n o ? °m _ 4 14L EOJ NAME="MittosMt m�ord-Nbrk Pin 3602 R-Ace _ • __ EPJL EOJ NAME"NW3S0023" I Define the context 2 Analyze trends,forces 8 issues NIMMESSE 3 Establish a community vision 4 Explore the possibilities _ s Define how Elk River will look and function 6 Develop the Plan and MINEINIMME Strategies/Seek Approvals 7 Dcoument the results - -- • • ©Hoisington Koegler Group, Inc. Page 12