HomeMy WebLinkAboutCOUNCIL - AGENDA ITEM - 03/09/2021 - EAST MULBERRY PLANNINGDATE:
STAFF:
March 9, 2021
Caryn Champine, Director of PDT
Travis Storin, Chief Finance Officer
Sylvia Tatman-Burruss, City Planner
WORK SESSION ITEM
City Council
SUBJECT FOR DISCUSSION
East Mulberry Planning.
EXECUTIVE SUMMARY
The purpose of this item is to provide Council with an overview of the process to update the community’s vision
for the future of the East Mulberry area. Staff will share a public engagement plan and the steps to update the
area’s long-range plan in 2021. Project outcomes also include a fiscal impact analysis that will inform the Plan’s
recommendations and provide options for a potential, multi-phased annexation for those portions of the area
presently in the County’s jurisdiction.
GENERAL DIRECTION SOUGHT AND SPECIFIC QUESTIONS TO BE ANSWERED
Guidance Sought
1. What feedback do Councilmembers have on the public engagement plan?
2. What input would Councilmembers provide regarding the future vision and implementation for East Mulberry?
BACKGROUND / DISCUSSION
Project Outcomes
Following adoption of an updated East Mulberry Plan, the, fiscal impact analysis will provide information
necessary for the City Council to consider possible annexation of the “enclave” portion of the East Mulberry area
presently in Larimer County’s jurisdiction (Attachment 1 for map of enclave and East Mulberry Plan area).
The major deliverables of the project are:
• Adoption of the East Mulberry Plan (previously known as the East Mulberry Corridor Plan) that captures the
community’s desired vision for the next 20-30 years, consistent with City Plan;
• An assessment of existing infrastructure conditions and recommended future City infrastructure investmen ts
and programs, consistent with the East Mulberry Plan;
• A revenue and cost estimate associated with future annexation and infrastructure and operational needs,
including potential annexation phasing options; and
• Recommendations for business, resident, and property owner engagement.
A successful Plan Update will express a vision for an attractive, unique part of our community that addresses
important economic and housing goals.
A thorough Annexation Assessment will provide a balanced understanding of the benefits and tradeoffs of
implementing the East Mulberry Plan vision, should the area come into the City’s jurisdiction. It will also include
several specific scenarios for how the potential annexation could be phased over time to address the additional
cost to provide City services.
History
March 9, 2021 Page 2
The last amendment to the East Mulberry Plan (previously referred to the East Mulberry Corridor Plan was
completed in 2003, which was jointly adopted by the City of Fort Collins and Larimer County. A lot has changed in
Fort Collins and the surrounding region since the time of the Plan’s adoption, including a major update to the
City’s Comprehensive Plan (2019). A Plan update is needed reexamine the East Mulberry area relative to
emerging trends and key policy recommendations found in the City Plan Update and to ensure that the East
Mulberry Plan is a relevant and useful tool for guiding public and private investment in the future.
A three-square mile area of unincorporated County land completely surrounded by land w ithin the city limits,
referred to as an 'enclave’, was formed along East Mulberry in August 2018 that permits the City of Fort Collins to
annex the area after three years. Although not statutorily required to annex the enclave, the City has an
agreement with Larimer County that such an enclave annexation will be pursued when it becomes eligible. Given
the size of the East Mulberry enclave, such an annexation could be phased over several years. In preparation for
City Council’s future discussions of a potential enclave annexation, an analysis of new revenues and new service
costs must be developed along with the operational impacts to the City and community benefits so that data -
driven decisions can be made on annexation options.
Our Shared Purpose
The agreement mentioned above between the City of Fort Collins and Larimer County has established a Growth
Management Area (GMA) that concentrates urban development in areas that affords greater efficiency in urban
service provision. As areas within the GMA have urbanized over time, the City has traditionally annexed those
areas to match service needs with their level of development intensity. Because the East Mulberry area has
become more densely populated, the area’s needs have evolved toward a more complete r ange of urban services
for industrial, commercial, and residential uses. These services include, among others, public infrastructure
updates and maintenance, police services, and connected urban design.
In addition to an examination of urban service needs , this project aims to engage residents, business owners and
others who are involved within the East Mulberry area in thinking long -term about the vision and priorities for the
future. The previous plan focused on the East Mulberry area as a “corridor” alo ng the State Highway 14 frontage.
This plan will focus more broadly on the area as a unique destination, which can embrace its existing character
while envisioning long-term opportunities. This plan will also focus on ways to integrate the area into the br oader
Fort Collins community, with which it is already closely linked, and identify barriers to that vision.
The East Mulberry area is unique within Northern Colorado. It is one of the largest industrial areas in the region
and boasts over 500 businesses. Some of those businesses are known regionally, nationally and even
internationally for their products and services. The area also has several neighborhoods with housing that is, on
average, more affordable than much of the broader Fort Collins area.
The City’s Comprehensive Plan, known as “City Plan,” which was formally adopted in 2019, defined the following
core values, which are foundational to our community:
• Livability
• Community
• Sustainability
Within these, some unique characteristics to highlight for East Mulberry within each include a vibrant economy
with good jobs, a culture of open, honest communication and a commitment to equity, diversity, and inclusion.
City staff commits to uphold and balance these core community values throughout the planning process.
Some of the primary issues that have been highlighted thus far in the public engagement process and internal
conversations include:
• Respecting the unique character of the area
• Exploring funding options to support infrastructure
• Enhancing and protecting natural resources
March 9, 2021 Page 3
East Mulberry Area Plan Update Process
The Plan will be updated in stages as outlined below. There will also be an existing conditions document
produced (similar to the Trends and Forces Report created for City Plan). This summ ary document will provide a
snapshot in time of the conditions on the ground and the trends that have influenced the area’s development.
Several Working Groups have been convened, comprised of staff specialists from multiple City departments and
partner agencies (e.g., Larimer County, water and sewer districts, Poudre Fire Authority, and the Colorado
Department of Transportation).
The Plan update process has been broken into 4 stages:
• Stage 1: Existing Conditions & Challenges/Opportunities
• Stage 2: Vision document, preliminary policy options
• Stage 3: Potential phasing options
• Stage 4: Draft plan, vision, and phasing plan
The Existing Conditions Document will be the first deliverable in the plan update process. The document is meant
to outline the existing conditions within the area based on several focus areas:
1. Infrastructure
2. Urban Design and Land Use
3. Community Services
4. Social Sustainability
There are 6 Working Groups, each with a lead facilitator and a group of subject matter experts from a cross the
City organization. Each group meets monthly and will continue for the duration of the East Mulberry Plan update
process. The primary function of the working groups is to contribute to the Plan’s development through an on -
going dialogue and production of interim work products, the first of which is the Existing Conditions document.
Public Engagement Deliverables and Goals
The community engagement plan has been designed to build connections between City staff and those who live,
work, and play in the area by engaging stakeholders at multiple levels in the visioning and Plan update process.
Using the International Association for Public Participation’s (IAP2) guidelines, the engagement process for this
project will clearly convey the level of public participation and influence available at each stage. The process will
seek a high degree of involvement in the early stages and narrow to an inform and consult approach as the Plan
and policies are finalized. Each of these stages of engagement will track with the four stages of the project, as
outlined below:
Stage 1:
• Launch interactive and informative webpage
• Share Existing Conditions document
Stage 2:
• Draft Vision Document from Existing Conditions engagement
• Draft Design Policy document
Stage 3:
• Finalize Vision document
• Develop potential annexation Phasing Options
Stage 4:
• Draft East Mulberry Plan
• Refine and share potential annexation Phasing Options
• Develop Land Use and Design Policy recommendations
March 9, 2021 Page 4
Financial Analysis Process
The Financial Plan team is partnering with a financial consultant, Economic Planning Systems (EPS), to build an
Excel-based scenario modeling tool that will allow for evaluation of alternative phasing, sequencing, and funding
options for a possible series of annexations.
Key questions and tensions:
• Integration with Existing Conditions assessment
• Operating Costs and Capital
• Timing / Sequencing
Modeling Considerations:
• Direct vs. Indirect Costs
• Average cost factors vs. specific case drivers
• Levels of Service: Current, Minimal Requirements, Desired
Status
• Data gathering efforts to date have been focused on obtaining baseline financial data and operational
metrics from which to build projections of future revenue and cost estimates. Coordination with the
Working Groups and other third-party entities ensures that integration with existing workplans and
schedules are considered, and fully burdened cost and revenue estimates are developed.
• Model Architecture / Development is under way, integrating with GIS mapping data to b reak out the
land parcels into logical planning units (following existing land use designations, historical area
characterizations, City Plan guideposts, etc.) that allows for easier comparison of sequencing and
phasing alternatives.
Polarities and Tensions
As the project moves into the public engagement stages, staff has identified several key considerations or
tensions inherent in the work. One key consideration is the balance between affordability and infrastructure
improvements in the area. Being mindful of and open about such polarities and tensions will help staff and
stakeholders identify early warning signs of over -focusing on one attribute at the expense of another.
Next Steps
• Using the GARE (Government Alliance on Race & Equity) toolkit to fully integrate equity and inclusion
throughout the engagement and Plan update process
• Public Engagement and Plan-Making Kick-Off Event
• Finalize the Public Existing Conditions Document
• Continued Financial Assessment
ATTACHMENTS
1. Mulberry Base Map (PDF)
2. Power Point Presenation (PDF)
MULBERRY
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PROSPECTLEMAYSU
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E TIMBERLINEMap Legend
Fort Collins City Limits
East Mulberry Corridor Plan Boundary
Water Features
East Mulberry Annexation Area
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1 in = 2,500 feet
ATTACHMENT 1
East Mulberry UpdateTravis Storin, Caryn Champine, Sylvia Tatman-BurrussMarch 9, 2021ATTACHMENT 2
Presentation Overview1. Our Shared Purpose2. 2021 Vision and Implementation Strategy3. Plan Update and Engagement2ATTACHMENT 2
Guidance Sought1. What feedback do Councilmembers have on the public engagement plan?2. What input would Councilmembers provide regarding the future vision and implementation for East Mulberry?3ATTACHMENT 2
Strategic AlignmentSAFE 5.2 - Meet the expected level of core and specialized police services as the community grows4NLSH 1.7 - Develop options and assess the feasibility of the annexation of the Mulberry Corridor ECON 3.3 - Systematically engage the business community with an emphasis on starting, sustaining and renewing businesses NLSH 1.5 - Enhance the quality of life in neighborhoods, empower neighbors to solve problems, and foster respectful relationsATTACHMENT 2
Our Shared Purpose5ATTACHMENT 2
Rural to Urban• Growth Management Boundaries• Shared agreement, City/County• Delineate urban and rural growth• Thinking long-term about area as a place and not a corridor6ATTACHMENT 2
Regional and Local Draw7• Over 500 Small Businesses• Regionally, Nationally and Internationally recognized• Biggest Industrial Area in the NoCoRegion• Affordable residential neighborhoods• Connecting E Mulberry to Fort CollinsMap LegendGrowth Management BoundaryTown/City BoundaryATTACHMENT 2
City Plan Core ValuesLivabilityAttainable Housing OptionsA vibrant economy with good jobsSafety and StabilityCommunityA culture of open, honest communicationA commitment to equity, diversity and inclusionStrong public and private social servicesSustainabilityA strong and diverse economyCareful management of growth and resourcesProtection of the Natural Environment8ATTACHMENT 2
East Mulberry Plan - Vision9How can the plan reflect unique area character?What are funding options to support infrastructure?How can natural resources be enhanced and protected?ATTACHMENT 2
Key ConsiderationsDesired Outcome: Community BuildingWhat to Avoid: Lose identity or accessibility of areaKey Considerations: Affordability and Improvements10• Community Members question efficacy of infrastructure maintenance/improvements• Community Members report a feeling of being left outOver focusing on affordability• Community Members express discomfort with options for financing improvements• Community Members express a feeling of loss of identityOver focusing on ImprovementsATTACHMENT 2
2021 Vision and Implementation Strategy11ATTACHMENT 2
E Mulberry Project Components12East Mulberry PlanFinancial AnalysisImplementationEast Mulberry Project• Where it all comes together• Balance of Internal and External Vision• Consistent with City Plan• Modeling Costs and Benefits of Potential Annexation• Assessment of existing and future infrastructure• Working with Consultant (EPS)• Potential Phasing Plan• Culmination of Vision and Capacity• Policy, Investment, PartnershipsATTACHMENT 2
Macro Project TimelineData CollectionArea Plan/Financial Analysis Enclave Eligible for AnnexationMulberry Project Timelines (Overview)201920202021Q3Q4Q1Q2Q3Q4Q1Q2Q3Q4→Community Engagement2021 Deliverables are 1) Updated Land Use Plan (EMP) and 2) Assessment of Costs and Revenue for Annexation Decision MakingATTACHMENT 2
Team StructureCore TeamTravis Storin, Paul Sizemore, Cameron Gloss, Dave Lenz,Honore Depew, Amanda King, Josh Birks Corridor Plan TeamCity PlanningHistoric PreservationNeighborhood SvcsEngineeringFC MovesFinancial Plan TeamUtilitiesPolice ServicesFinancial ServicesSteering Committee Darin AtteberryCarrie DaggettKelly DiMartinoJeff SwobodaTheresa ConnorKyle StannertCaryn ChampineSubject Matter Expert TeamELCOBox ElderCDOTPVREACultural SvcsWater Field ServicesWaterUtility Customer ServiceTransfortStreetsLarimer County PlanningPoudre Fire AuthorityScenic Byway CouncilPark PlanningLight & PowerCommunication Flow
Urban Renewal AuthorityPoliceEngineeringCity Attorney’s OfficeEquity OfficeMeetingFrequencyQuarterlyBi-WeeklyBi-Weekly / As neededAs neededCPIONeighborhood SvcsEconomic HealthEngagementATTACHMENT 2
Financial Analysis Update • Objective:• Development of the Scenario Modeling Tool for Mulberry Annexation analysis that allows for evaluation of alternative phasing, sequencing and funding options• Coordination Efforts:• Economic & Planning Systems (EPS)• Finance Planning Team• East Mulberry Plan Team• Working Groups• Other 3rd Party entities15ATTACHMENT 2
Financial Analysis Update • Key questions and tensions:• Integration with Existing conditions assessment• Operating Costs and Capital• Timing / Sequencing• Modeling Considerations:• Direct vs. Indirect Costs• Average cost factors vs. specific case drivers• Current vs. Desired Service levels• Status• Data Gathering Efforts• Model Architecture / Development 16ATTACHMENT 2
Plan Update & Engagement17ATTACHMENT 2
East Mulberry Map18Walmart/Home DepotFort Collins NurserySundance Steakhouse and SaloonArea LandmarksATTACHMENT 2
East Mulberry Plan• 2002 Plan helped to guide development• Focused on “Corridor”• Plan update will continue to be used to guide development in partnership with Larimer County• More focus on placemaking and community building19ATTACHMENT 2
East Mulberry Plan (EMP) Update• Engaging diverse group of stakeholders• Utilizing equity and inclusion resources within the City• Some engagement tailored to businesses/residents in E Mulberry• Balance of broader community engagement20Existing Conditions & Challenges/OpportunitiesNow – Mid-MayVision document, Preliminary Policy Options, Preliminary Phasing PlansMay-JulyFiner phasing choices, what they mean, why they were chosen August-OctoberDraft Plan, Vision, Annexation Phasing Plan, PoliciesOctober - DecemberStage 1Stage 2Stage 3Stage 4ATTACHMENT 2
Outline of Existing Conditions Document SectionDescriptionIntroduction• Our Shared Purpose• Big changes since 2002Basic Demographics (compared to FC) • Population/age/income level/educational attainmentFocus Area #1: Infrastructure• Road Conditions and standards• Stormwater• Light and Power/Water UtilitiesFocus Area #2: Urban Design and Land Use• Character Districts• Current Land UsesFocus Area #3: Community Services • FCPS/LCSO Call Volumes and Transition• PFA Call VolumesFocus Area #4: Social Sustainability • Special Improvement Districts• Economic/Business Support• New Development/Redevelopment Potential21ATTACHMENT 2
Public Engagement and DeliverablesStage 1: InvolveDeliverables:Existing ConditionsWebpageStage 2: Involve & ConsultDeliverables:Draft Vision documentPreliminary Policy OptionsStage 3: Consult Deliverables:Vision DocumentRefined potential phasing choicesStage 4: Inform & ConsultDeliverables:Draft Plan Potential Annexation PhasingPolicies22Promise:Work Directly with the public to align challenges and opportunitiesPromise:Align what we heard from public with internal constraints for vision developmentPromise:what they mean, why they were chosenPromise:Here is the plan and how we got hereATTACHMENT 2
Guidance Sought1. What feedback do Councilmembers have on the public engagement plan?2. What input would Councilmembers provide regarding the future vision and implementation for East Mulberry?23ATTACHMENT 2