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HomeMy WebLinkAboutCOUNCIL - AGENDA ITEM - 03/08/2022 - EAST MULBERRY PLAN UPDATEDATE: STAFF: March 8, 2022 Sylvia Tatman-Burruss, City Planner Travis Storin, Chief Financial Officer WORK SESSION ITEM City Council SUBJECT FOR DISCUSSION East Mulberry Plan Update. EXECUTIVE SUMMARY The purpose of this item is to provide Council with an overview of the plan update process thus far and gather feedback on the strategic approach to plan-making and annexation evaluation. Staff will share an update on public engagement, present the approach for goals and share proposed decision -making framework for annexation scenario planning. GENERAL DIRECTION SOUGHT AND SPECIFIC QUESTIONS TO BE ANSWERED 1. Is the Triple Bottom Line framework for annexation scenario development the right approach? 2. How does Council want to use our time with Commissioners on April 13? BACKGROUND / DISCUSSION Project Outcomes The “Project” is generally defined in two interrelated parts: the East Mulberry Plan and the Annexation Phasing Analysis. Following adoption of an updated East Mulberry Plan, the annexation phasing analysis will provide information necessary for Council to consider possible annexation of the “enclave” portion of the East Mulberry area presently in Larimer County’s jurisdiction. The major deliverables of the entire 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 investments and programs, consistent with the East Mulberry Plan; • A revenue and cost estimate associated with future annexation and infras tructure and operational needs, including potential annexation phasing options by sub-area; and • Recommendations for short-, mid- and long-term implementation strategies. A thorough Annexation Assessment will provide a balanced understanding of the benef its 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 The current East Mulberry Corridor Plan was completed in 2003. The plan was jointly adopted by the City and Larimer County. The plan update will reexamine the East Mulberry area relative to emerging trends and key policy recommendations found in the 2019 City Plan Update. Through engagement with area business owners, residents and extensive internal staff conversations, the plan aims to highlight area priorities, guide thoughtful growth, and prioritize future public investments. March 8, 2022 Page 2 A three-square mile area of unincorporated County land surrounded by land within the city limits, referred to as an 'enclave’, was formed along East Mulberry in August 2018 that permits the City 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. Annexation has been a tool used to grow the boundary of the City’s jurisdiction since the late 1800s. Since the 1950s, many of the annexations have occurred to the south in conjunction with development proposals on otherwise “greenfield” land, often of formerly agricultural lands or undeveloped prairie lands. Much of the East Mulberry area developed between the 1950s and 1970s, especially the industrial area north of East Mulberry Street. This area was generally isolated from the development occurring to the east around the core of College Avenue. As development occurred outward from the Fort Collins core in the 1980s, the East Mulberry area eventually became surrounded by City limits. Our Shared Purpose The agreement mentioned above between the City 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 range 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. The last major Enclave Annexation occurred in phases between 2007 and 2013 and the phasing plan was adopted by Council in 2006. That enclave annexation is known as the Southwest Enclave Annexation. In addition to an examination of urban service needs, a comprehensive community engagement plan has been implemented to guide the plan framework. Residents, business owners and others who are involved within the East Mulberry have been engaged to think long-term about the vision and priorities for the future. In addition to area-wide engagement activities, an advisory group was formed with area residents and business o wners to create space for deep-dive conversations into specific topics and offer a space for ongoing conversation. There are currently 14 members of the advisory group. The East Mulberry area is unique within Northern Colorado. It is one of the largest in dustrial 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. Timeline and Work Plan Update The original project timeline envisioned the review of the draft plan occurring ahead of the annexation scenario discussion to make sure the future goals and vision for the East Mulberry area were aligned with Council goals and priorities. The proposed updated timeline prioritizes annexation scenario planning and discussion ahead of draft plan review to allow Councilmembers to understand the decision-making framework and timeline to inform the plan-making process. Original Timeline for 2022: • March 8: Review Goals and Big Ideas for East Mulberry Plan and Review Annexation Scenario Framework • April 26: Review Draft of the East Mulberry Plan • Early Summer: Review draft of annexation phasing scenarios • Late Summer/Fall: Adopt East Mulberry Plan and Phasing Scenario March 8, 2022 Page 3 Proposed Updated Timeline for 2022: • March 8: Review Goals and Big Ideas for East Mulberry Plan and Review Annexation Scenario Framework • April 26: Review Draft Annexation Phasing Scenarios • Summer: Consider the refined financial assumptions presented on April 26 and discuss refined timeline and scenarios for annexation • Fall/Winter: Review Draft of the East Mulberry Plan and discuss final annexation scenarios This timeline reflects a pivot to include more framing and context for annexation decision -making ahead of the East Mulberry Plan draft review. This framing and context will include exploration of financial assumptions based on things such as capital expenditures, future development potential and timing in the potential annexation phasing conversation. EAST MULBERRY PLAN UPDATE Community Engagement Community engagement for this plan has focused primarily on the business owners and residents withi n this area. While this area is important to the community of Fort Collins and the Northern Colorado region as a whole, Area Plan engagement usually occurs first with those who experience and interact with the place daily as an employee, business owner, resident or a combination of these. Sessions so far have included the following topics: • Several listening sessions focused on future vision of the area, questions regarding impacts of potential annexation and identifying issues based loosely on the model of “achieve, avoid, preserve.” • Visioning Sessions have focused on sired “travel corridor” improvements along Link Lane, Lincoln Avenue, South Summit View Drive, Timberline Road and East Mulberry Street and any desired improvements at key intersections. • Other visioning session topics have included Character Areas, and East Mulberry Plan Goal refinement. • Spanish interpretation has been offered at all major visioning and listening sessions and one visioning session was conducted as a Spanish-language only engagement event. • Two prominent neighborhood HOAs have engaged directly with City staff and City staff has presented at a regular Countryside Estates HOA meeting to answer resident questions and create a shared FAQ for neighborhood residents. Some of the primary opportunities and priorities that have been highlighted thus far in the public engagement process and internal conversations include: • General concerns about fee increases and the effect of City standards on business owners • Interest in greater connection to the broader Fort Collins community • Interest in crime reduction, especially at I-25 and East Mulberry • Interest in allowing space for industrial uses and better access for trucks • Interest in aesthetic improvements along East Mulberry • Interest in preservation of Mobile Home Parks East Mulberry Plan Structure Public engagement and internal staff conversations have culminated into six main goals for the East Mulberry Plan: • Dedicated and Flexible Space for Industry • Safe and Functional Stormwater & Transportation Infrastructure • Integrate and Connect to Community Amenities and Services • Protect and Promote Historic and Natural Features • Improve Placemaking of East Mulberry Commercial Frontage • Explore Phased Annexation of Enclave March 8, 2022 Page 4 Staff has then developed “Big Ideas” or strategies to achieve these goals: Annexation Evaluation and Decision-Making Framework Based on previous involuntary annexations of a similar size, staff recommends exploring a phased approach rather than offering scenarios that emphasize bringing the area into city limits all at once. Staff has taken a “triple bottom line” approach to the annexation evaluation. While financial considerations are very important in the decision-making process, there are other considerations to balance in this process. Therefore, staff has developed three distinct buckets of lenses for evaluation: • Economic (transportation and stormwater infrastructure, capacity, services, revenue, redevelopment) • Social (displacement, attainable housing, affordable business spaces, Industrial and Ag Land Uses) • Environmental (protection, enhancement, integration) This work analyzes priorities, assumptions, timing, and resources through these “lenses” and is used as a framework for analyzing benefits and trade-offs of phasing options for annexation. Weighing any one of these March 8, 2022 Page 5 over another based on a given set of assumptions produces different outcomes and can help to illustrate trade - offs and desired outcomes of resource allocation over time. Given the Triple Bottom Line framework, staff proposes we explore scenarios that clearly prioritize the following topic areas based on financial modeling assumptions and timeline: • Fiscal • Environmental • Economic/Business-Focus • Social These scenarios will include all these assumptions and priorities, though priorities within each of these “lenses” will be emphasized through timing and resources. Assumptions and financial implications will be clearly articulated by staff, allowing assumptions and priorities to be “mixed-and-matched” to create new, more refined scenarios for consideration if desired. Council and County Commissioner Meeting The purpose of this meeting is to allow elected officials to discuss aspects of these complex topics that aff ect both agencies. This meeting will include two topics: • East Mulberry Plan and Annexation Phasing • Regional Air Quality East Mulberry Plan and Annexation Phasing Topic Proposed Questions: • Explore expectations regarding timing of annexation and shared purpose • Discuss Near-, Mid-, and Long-Term trigger points for annexation phases • What feedback do Commissioners and Councilmembers have on the goals and shared values of the plan and the annexation decision-making framework? Next Steps • Continue to refine annexation phasing options • Continue to refine plan policies and content • Bring forward annexation phasing options based on the Triple Bottom Line Framework • Bring forward refined annexation phasing options in Summer 2022 • Bring forward draft East Mulberry Plan and discuss final annexation scenarios Fall/Winter 2022 ATTACHMENTS 1. Powerpoint Presentation (PDF) East Mulberry Project Update March 8, 2022 City Council Work Session Tr avis Storin & Sylvia Tatman-Burruss ATTACHMENT 1 2Agenda 1.Is the Triple Bottom Line framework for annexation scenario development the right approach? 2.How does Council want to use our time with Commissioners on April 13th? 3Timeline/Work Plan Update Original Timeline (2022): March 8th •Review Goals and Big Ideas for East Mulberry Plan •Review Annexation Scenario Framework April 26th •Review Draft of the East Mulberry Plan Early Summer •Review Draft Annexation Phasing Scenarios Late Summer/Fall •Explore final scenarios for annexation phasing •Explore changes to the plan to accommodate annexation outcome March 8th •Review Goals and Big Ideas for East Mulberry Plan •Review Annexation Scenario Framework April 26th •Review financial assumptions •Review Draft Annexation Phasing Scenarios Winter •Review Draft of the East Mulberry Plan •Discuss final annexation scenarios Summer •Consider refined financial assumptions, timeline and scenarios for annexation Proposed Timeline (2022): STB0 East Mulberry Map 4 5 Shared Purpose: Annexation History •Growth Management Boundaries •Shared agreement, City/County •Equitable Service Provisions •Delineate urban and rural growth •Long-term Placemaking Engagement Update Engagement Summary Thus Far: •General concerns about fee increases and the effect of City standards on business owners •Interest in greater connection to the broader Fort Collins community •Interest in crime reduction, especially at I-25 and E Mulberry •Interest in allowing space for Industrial uses and better access for trucks •Interest in aesthetic improvements along E Mulberry •Interest in preservation of Mobile Home Parks 6 Plan Structure East Mulberry Plan 8 Dedicated & Flexible Space for Industry Safe and Functional Stormwater & Tr ansportation Infrastructure Integrate and Connect to Community Amenities & Services Protect and Promote Historic and Natural Features Improve Placemaking of East Mulberry Commercial Frontage Explore Phased Annexation of Enclave Plan Goals CC0 Big Ideas 9 Goal Big Ideas Dedicated and Flexible Space for Industry •Foster innovation and entrepreneurship for commercial and industrial uses •Customized approach to in-fill development and business improvements Safe and Functional Stormwater Tr ansportation Infrastructure •Increase multi-modal transportation connections •Improve stormwater infrastructure •Identify funding and commitments for substandard and missing infrastructure Integrate and Connect to Community Amenities & Services •Increase community policing resources •Explore mechanisms to maintain housing affordability and existing character of residential neighborhoods Big Ideas, Continued 10 Goals Big Ideas Protect and Promote Historic and Natural Features •Protect existing natural habitats and features (including the Poudre River, Dry Creek, Cooper Slough, and Boxelder Creek) through thoughtful and appropriate development and buffer standards •Identify new areas for parks and natural areas and increase existing access •Increase urban tree canopy Improve Placemaking of East Mulberry Commercial Frontage •Collaborate with CDOT,adjacent business-owners and other community stakeholders on the re-design of East Mulberry for multi-modal transportation. •Emphasize I-25 intersection and corridor frontage as “Gateway ” into Fort Collins Explore Phased Annexation of Enclave •May allow for greater integration and implementation of plan goals •Careful and strategic analysis of pros and cons related to annexation Annexation Phasing Scenario Planning 12Scenario Planning Triple Bottom Line Analysis Financial Analysis East Mulberry Plan Community Outreach Council Direction and Phasing Options Safety •I-25 and East Mulberry consistently noted as an area where business success is partially impeded by safety issues not adequately addressed by current law enforcement efforts •actively requested to be annexed early to mitigate law enforcement deficiencies Aesthetics/Transportation •aesthetic improvements along the E Mulberry frontage •Hwy is dangerous to access by all transportation modes Stormwater Improvements •The service-area/Industrial park southwest of the old airport and directly east of Home Depot and Walmart is severely affected by stormwater infrastructure deficiencies and flooding related to Dry Creek Housing and Transit •Mechanisms for affordable housing preservation can be utilized in these neighborhoods •Investments in transportation mobility can be planned for Summit View Implementation Approaches/financials Bottom Line: •Based on precedent from previous annexations, a phased approach is recommended •Allows for allocation of resources over time •Allows time for revenue generation ahead of other phases •Allows for better community engagement ahead of each phase Annexation Phasing Scenarios •Bring forward 3-5 Scenarios that clearly prioritize the following topic areas: •Fiscal •Environmental •Economic/Business-Focus •Social 15Scenario Planning Triple Bottom Line Analysis Financial Analysis East Mulberry Plan Community Outreach Phasing Options Environmentally- Focused Phasing •Emphasizes environmental priorities first •Other priorities are still present, but delayed or resourced differently Environmentally- Focused Phasing •Emphasizes environmental priorities first •Other priorities are still present, but delayed or resourced differently Economically-Focused Phasing Option •Emphasizes economic priorities first •Economic here means for economic development and vitality in the area •Not focused necessarily on Fiscal impact Fiscal-Impact-Focused Phasing •Emphasizes fiscal impact to City, including existing priorities, risks and a timeline •Other priorities are de-emphasized to clearly articulate fiscal impact STB0 16Timeline/Work Plan Update Original Timeline (2022): March 8th •Review Goals and Big Ideas for East Mulberry Plan •Review Annexation Scenario Framework April 26th •Review Draft of the East Mulberry Plan Early Summer •Review Draft Annexation Phasing Scenarios Late Summer/Fall •Explore final scenarios for annexation phasing •Explore changes to the plan to accommodate annexation outcome March 8th •Review Goals and Big Ideas for East Mulberry Plan •Review Annexation Scenario Framework April 26th •Review financial assumptions •Review Draft Annexation Phasing Scenarios Fall/Winter •Review Draft of the East Mulberry Plan •Discuss final annexation scenarios Summer •Consider refined financial assumptions, timeline and scenarios for annexation Proposed Timeline (2022): STB0 County engagement –staff and County Commissioners 17 18Topics for Joint Council/County Commissioner Meeting Sharing with Commissioners: •March 21st: Similar presentation to Commissioners •Packet available for Councilmembers and Commissioners first week in April April 13th, topics for discussion: East Mulberry Annexation ·Explore expectations regarding timing of annexation and shared purpose ·Discuss Near-, Mid-, and Long-Te rm trigger points for annexation phases ·What feedback do Commissioners and Councilmembers have on the goals and shared values of the plan and the annexation decision-making framework? Regional Air Quality