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11-09-21 Council Work Session PacketWORK SESSION AGENDA City Council Work Sessions are being conducted in a hybrid format with in-person and remote options for attending. Remote Attendance: Members of the public may attend this meeting by streaming via Webex (Click here) or by calling 1-415-655-0001 and entering access code 2465 114 1631. Additional information about attending electronic meetings is available on the City website. Pages 2-52 53-62 63-66 67-101 102 1.Facilities Study Council Update 2.Sign Code Update 3.Outdoor Service Area 4.Accessory Dwelling Unit Check-In 5.Just City Mayoral Fellowship 6.Council Review of Future Draft Agendas 103-105 Council Work Session meetings have an informal, discussion-style format and are designed for the Council to obtain background information, consider policy alternatives, and provide general directions to staff. No formal actions are taken at these meetings. The public is invited to attend Council Work Session meetings and listen to the discussion; public participation is allowed by invitation of the City Council. November 9, 2021 – 6:30 pm Council Chambers Hybrid Meeting Golden Valley Council Work Session November 9, 2021 Agenda Item 1. Facilities Study Council Update Prepared By Marc Nevinski, Physical Development Director Summary Last year, following a study in 2016 of the Fire Department operations and the recommendations in phase II of the Downtown Study, the City initiated a comprehensive analysis of its facilities in order to develop a long-term, phased approached to planning, financing and addressing its facilities needs. Following a Request for Proposal (RFP) process, the City selected the BKV Group to complete the study. Additional team members included Hoisington Koegler Group, Inc. (HKG)i, who worked on the Downtown Study, Oretel Architects, who specializes in public works facilities, and Kraus-Anderson Construction, who provided construction phasing recommendations and project cost analysis. Additionally, the City engaged Baker-Tilly, its financial advisor, to provide a financial impact analysis of the proposed long-range phased implementation scenario. In addition to relying on the expertise and knowledge of its consultants, the City formed a Task Force, chaired by Councilmember Rosenquist, comprised of residents and business and institutional representative to provide insight and perspectives regarding community priorities, engagement methods, and other community wide considerations. Additionally, a steering committee comprised of several department heads provided information and insight into building functions, department operations and direction for the study. Finally, weekly meetings were held with the consultant team and several staff members to prepare for engagement events, project communications, and other project needs. Process In October of 2020, BKV began work on the study with an on-site analysis of existing conditions, reviewing previous and current plans and documents, and collecting data and insight from staff. BKV supported the monthly Task Force meetings which were held from November 2020 to June 2021. Due to the pandemic, the Task Force meet virtually. Topics and discussion included a review of previous plans, existing conditions, bylaws, City debt, engagement events, review of community response/feedback, project priorities, space planning, and the review of scenarios. Task Force members also posed questions to staff and the consultants to challenge assumptions, request more information, or present unique perspectives and citizen insights into the planning process. These Council Work Session Executive Summary City of Golden Valley November 9, 2021 2 discussions lead to the establishment of the study’s objectives and goals framed engagement events, and resulted in the selection of two development schemes for the city campus. It is worth noting that the study goals, or guiding principles, outlined in the report significantly influenced the development of the two schemes, and are summarized as follows: • Develop a long-term plan for phased investment • Balance implementation and debt management • Address critical space needs and plan for future needs • Build on the guidance of the Downtown Study • Explore co-location for value, efficiency and impact • Use community engagement to develop Staff and BKV provided the City Council a project update at its February 9, 2021 Council/Manager meeting, where project background, findings from building assessments, and results from community engagement events were reviewed. In June several members of the Task Force were able to participate in a tour of the City of Fridley’s new facilities, which was followed by tour Golden Valley’s buildings and Fire Station No. 2. Since then, staff has been working with Baker-Tilly to understand the potential long- term financial impact of the recommended scenario. Community Engagement Three community engagement events were held over the course of the study to obtain input from residents and businesses about the City’s facilities needs. The pandemic forced engagement to occur online. The first event included a video of several department heads discussing the challenges of the existing facilities. Viewers were then asked to complete a survey to provide insight into community priorities and interests. Information and the survey were also made available by request in a hard copy format. Based on feedback from the Task Force, a second community event was held to further discuss the City’s facilities. A webinar format was used and featured department heads, who discussed operations, needs and took questions. Two session were held, one over the over the noon hours and a second in the evening. A third event featured the use of an interactive website to share concepts with residents for redeveloping the campus, affirm project priorities, and share site selection criteria to be used in selecting sites for a remote fire station and a public works facility. This event was also paired with an identical engagement event for the third phase of the downtown study. BKV and staff also meet with a number of specific community stakeholders over the course of the study to discuss issues and opportunities associated with a reconfigured City campus. Stakeholders included Hennepin County Library and representatives of surrounding properties, including the malls and McDonalds. Meetings were also held with the Golden Valley Community Foundation and the Basset Creek Watershed. Hard-copy information was provided to residents at Calvary as well. Finally, in August, project information and tours of City facilities were offered at Market in the Valley. More detail about the community and stakeholder engagement is include in the Community Engagement report. Conclusions and Recommendations The study articulates and reinforces several general strategies for future City facilities and development that had previously been identified in prior studies or discussions: Council Work Session Executive Summary City of Golden Valley November 9, 2021 3 • Transition to a two-station, duty crew fire department staffing model • Renovate Police Station to enhance community policing and officer trainings, as well as address space needs that affect efficiency and recruitment. • Consolidate Public Works outside of the downtown area • Redevelopment of portions of the block to support economic activity in the downtown The study also includes the identification of a number of critical issues in each functional area (Police, Fire, Public Works, Administration) that should be addressed in new facilities. However, given the long-range, phased approach to new facilities, some critical issues need to be addressed through interim improvements. Fire Department The transition to a two-station, duty crew model is the primary need for the fire department, and requires the location of a new remote fire station on the eastside of Highway 100. This is the most critical recommendation of the study and is considered the immediate priority for facility needs. None of the existing fire stations has the ability to accommodate this operational model. A new remote fire station should address issues in the existing stations such as lack of sleeping quarters, drive through bays, safe areas to put on and take off turn-out gear, and building layouts and features that supports cancer prevention initiatives. Staff recommends beginning a site selection process soon. Police Department A number of critical issues exist in the Police Department that affect recruitment and retention, operational efficiency, officer training, and community engagement. • The locker rooms for male and female staff are undersized in general, and unequal in size and capacity, with more female staff than lockers at present; • There is only one small meeting / interview room in lobby, making it difficult to serve community members. • Staff or the public must enter through a secure area to access the downstairs training room, which is also used for community events. • Interviewees must enter a centrally located and secure area of the building. • Administrative work space is limited and office areas are overcrowded. • The gun range is undersized and its use impacts other uses in the building • Training space is limited, shared with the Fire Department, and must be reconfigured for classroom and physical training; • Storage space for equipment is limited; evidence room located in basement with undersized mechanical system; • Indoor and secured vehicle storage is limited; work flow is inefficient. A number of these issues have some urgency and need to be addressed to some degree through near term improvements in the existing building, but can be comprehensively addressed in a new facility. Public Works Public Works buildings are separated, undersized, and are located in the heart of downtown. Critical issues in Public Works includes: • Four functions are separated into four distinct buildings, creating inefficiencies and work flow impacts. Council Work Session Executive Summary City of Golden Valley November 9, 2021 4 • Split-level buildings without elevators create access issues; only two buildings have gender equitable facilities. • The buildings are not sized or well oriented to house modern equipment, resulting in damage to equipment and facilities. • Mechanical systems are at end of life. • Off-site storage of equipment and materials reduces efficiency and impacts mobilization. City Hall Critical issues in City Hall include: • The lack of a lobby area and existence of winding central corridors on two levels create confusion for customers. • The central corridors create inefficiencies and separate functions, impacting customer service, collaboration, and necessitating redundancies. • The building’s structural grid system limits reconfiguration options; mechanical systems are at the end of life. Based on feedback from staff and the Task Force, and considering the broader principles and goals for the downtown area, the study recommends two similar scenarios for the redevelopment of the City campus. Both options show a Public Safety facility in the center of the campus, where building and vehicle requirements can be met. Option “B” includes co-location of a city hall facility with a multi- family development in the southeast corner of the campus. This option leaves open the opportunity for private development on the northeast corner of the block where the Utilities building currently sits. Option “C” shows a city hall facility located on the northeast corner of the block facing the library. This option creates some synergy between a city hall and library, but avoids complexities of co-located facilities shown in Option “B”. An Alternative Option “C” shows how co-location of the two functions could occur on the northern portion of the block. Building off of the downtown study, east-west connections through the current campus block and a north-south trail connecting the Luce Line with downtown are included in both options, as is community gathering. Under either option, the logistics of constructing a new Public Safety facility requires first relocating and reestablishing Public Works. Financial Considerations To develop construction cost projections, and help to establish a potential schedule and framework to plan and budget for new facilities, the following schedule was established to understand the potential financial impact to the City. The costs do not include land acquisition but do reflect expected construction inflation costs over time. In order to manage costs and debt, the study contemplates a long-term, phased approach to the construction of new facilities: Remote Fire Station 2024 $ 9.2M Public Works/Demo 2030 $ 56.3M Public Safety 2040 $ 61.5M City Hall 2050 $ 33.8M Total $160.8M Due to the length of time projected for new facilities, interim improvements to address a number of issues discussed above will need to be completed prior to the construction of new facilities. Council Work Session Executive Summary City of Golden Valley November 9, 2021 5 Using the projected timeframe and construction cost estimates, Baker-Tilly developed a model to project over twenty-five years the financial impact of the proposed facilities on the City. The model factors in existing, retired, and new debt, the expiration of TIF districts, as well as potential new revenue. A summary of the model’s findings is attached. It notes that the proposed Public Works building nearly doubles the City’s debt levy. It also notes that while no referendum is required for to issue General Obligation bonds for facilities, a petition could force a referendum. A potential alternative revenue source could include approval of a local sales tax (Baker-Tilly projected revenue of 0.5% sales tax to generate approximately $2.85M annually.). Decertification of TIF districts and the development of currently non-taxable property would also add tax capacity. Yet another source of funding could come from State bonding dollars. Presently the City has an application for such dollars in 2022 to fund land acquisition and design work for a remote fire station, with the intent to seek additional bonding dollars in 2024 for construction. The Council considered a resolution of support for this application at its October 5, 2021 meeting. Discussion Points In light of the conclusions of the Facilities Study, staff offers the following potential discussion points for Council’s consideration: • Do the recommended campus development scenarios make sense? Are there thoughts or preferences regarding Options B vs C? • The report identifies the development of a remote fire station as a priority improvement for the City. A site selection process for a remote fire station should begin in the near future. • The extended project timeframe will require certain interim improvements (some urgent) to be made, particularly to the Public Safety building, and to lesser extent Public Works buildings and City Hall. • Do the conclusions of the study change the vision for downtown and the NE quadrant (the City Campus)? Are the principles, goals and priorities identified in the report still appropriate, or do they change given the results of the study? Financial Or Budget Considerations Financial considerations are discussed above. Supporting Documents • Draft Municipal Facilities Study Report (41 pages) • Baker-Tilly Fiscal Analysis (5 pages) • Link to Community Input Report (186 Pages) CITY OF GOLDEN VALLEY MUNICIPAL FACILITIES STUDY NOVEMBER 2021 - This Page Left Blank Intentionally - CITY OF GOLDEN VALLEY, MN Marc Nevinski, Physical Development Director Sue Schwalbe, Physical Development Assistant Sue Virnig, Finance Director Cheryl Weiler, Communications Director Jason Sturgis, Police Chief John Crelly, Fire Chief Ted Massicotte, Assistant Fire Chief Tim Kieffer, Public Works Director Gillian Rosenquist, City Council Member, Task Force Chair Andy Johnson, Planning Commissioner Becky Sanders, Brian Smith Cameron Selmer Gary Cohen Karen Boehne Kathryn Simpson Lucy Smith-Williams Marc Meirovitz Sara Barrow Tierre Webster CONSULTANT TEAM Bruce Schwartzman, AIA Partner-in-Charge Susan Morgan, AIA Project Manager Kelly Naylor & Margaret Lafferty City Hall Planners Craig Carter, AIA Fire Station Planner Michael Healy, AIA Police Planner Ben Janes Designer Dustin Phillips Pre-Construction Strategy, Cost Estimation Audie Miller Pre-Construction Strategy, Cost Estimation Andrew Cooper, AIA Public Works Planner Oertel Architects BKV Group Steering Committee Task Force Kraus-Anderson Bryan Harjes Public Engagement Lead Aimee Hackett Designer Jeff Miller Urban Planner, Downtown Study Liaison HKGI PLANNING COMMITTEE - This Page Left Blank Intentionally - 6 .............. 20 .............. 25 .............. 30 .............. 33 .............. Executive Summary Critical Needs Fire Department Police Department Public Works City Hall Appendices Space Needs Programs Space Standards Building Audit Preliminary Master Plan Concepts Community Feedback Budget Detail TABLE OF CONTENTS BKV Project No. 2405.01 Project Contact: Bruce Schwartzman, AIA BKV Group, Partner 612-373-9104 bschwartzman@bkvgroup.com BKV GROUP | OERTEL ARCHITECTS6 EXECUTIVE SUMMARY BKV GROUP | OERTEL ARCHITECTS6 SECTION TITLE Project Goals A. Develop a long-term plan with clear thresholds for phased investment and implementation. B. Balance implementation with debt management. C. Address critical space deficiencies, accommodate projected evolutions in operations and service delivery: i. Facilitate Fire Department transition from paid-on-call 3- station model to 24/7 duty crew 2-Station model. ii.Provide support and training spaces to enhance Police Department processing, operations, preparedness, and Community Outreach.* iii. Consolidate Public Works into a single location off-site from civic campus to improve service efficiency and accommodate contemporary equipment. D. Build on the guidance of the Downtown Study. E. Explore co-locations for efficiency, value, and impact. F. Utilize transparent, well- documented community and stakeholder outreach in project visioning and development. Project Objectives I. Demonstrate to the public the value of each of the key city services. II. Integrate Golden Valley vision, values, and mission into project planning principles. III. Increase equity in service delivery and in Golden Valley civic workplaces. IV. Demonstrate planning that fulfills city goals for sustainability, resilience, water and energy efficiency. Figure 1 Existing NE Quadrant Site Plan. Golden dashed line indicates City of Golden Valley property line. *Project Goals Note: Storage and training facilities are insufficient for Police, Fire, and Public Works, and are addressed in program recommendations for each department. BKV GROUP | OERTEL ARCHITECTS 7 GOLDEN VALLEY MUNICIPAL FACILITIES STUDY BKV GROUP | OERTEL ARCHITECTS 7 GOLDEN VALLEY MUNICIPAL FACILITIES STUDY OVERVIEW The City of Golden Valley provides a consistently high level of service to residents from facilities designed for operational and space requirements more than four decades old. Deficiencies in the size of facilities, workflow of spaces, and accommodations for staff currently impact hiring and retention, operational efficiency, safety, accessibility, and adaptability for continued evolution in equipment and practices. To appropriately address concerns for the City’s key operating facilities: Public Works, Fire, Police, and City Administration, a long-range plan is critical to comprehensively define needs, to objectively establish priorities, and to provide a framework for investment, planning, and phased implementation in City facilities that also responsibly manages debt. Building on the City’s 2040 Comprehensive Plan, guidance from the Urban Land Institute, and the 3- phase Downtown Study, this Municipal Facilities Study is a tool that combines long-term vision and goals for Golden Valley’s future with objective assessment of City facilities and operations to establish an informed and objective planning framework for the NE quadrant of Downtown Golden Valley, for Downtown City facilities and those to be located at new sites in the future. IMPACTED SITES Within Downtown Golden Valley, the block NE of the intersection of Winnetka Avenue and Golden Valley Road is home to the City of Golden Valley’s Public Works (3 buildings including surface parking and a work yard), Public Safety (Police and Fire co-located in a single building, with an additional adjacent police squad garage), and City Hall (home to Administrative Offices and the City Council chamber), a McDonald’s franchise, and the Golden Valley branch of the Hennepin Figure 2 Map of Impacted City of Golden Valley Municipal Facilities Sites BKV GROUP | OERTEL ARCHITECTS8 EXECUTIVE SUMMARY BKV GROUP | OERTEL ARCHITECTS8 SECTION TITLE County Library. This plan is also based around the existing water tower remaining in-place. The block is currently a mix of buildings and surface parking lots, with some components of pedestrian pathways criss-crossing the block. Basset Creek bisects the NW corner of the site, and immediately north across Rhode Island Avenue is the Luce Line Trail. The Downtown Study (2018-2021) by Hoisington Koegler Group Inc. (HKGi), identified the NE Quadrant as a specific area of redevelopment “envisioned as a consolidated civic institutional area on the northern portion with a mix of commercial and residential on the southern portion with a signature bike/walk pathway and public outdoor gathering spaces running through the middle of the site.” (Downtown Study Phase II Interim Report, January 2020, page 7). In addition to the Downtown site, the City currently operates out of additional Public Works buildings and yards at 10th Avenue and Highway 169, and out of Fire Stations #2 and #3 (400 Turners Crossroads and 3700 Golden Valley Road, respectively). Brookview facilities are not a part of this study. CRITICAL NEEDS This project supports City response to two related needs: outstanding issues with City facilities that impact operating conditions and costs, and doing so with a planning approach that also integrates response to the vision and planning for the enriched and revitalized future of Downtown Golden Valley. The City utilizes a Capital Improvement Program (CIP), a ten-year plan updated annually, to schedule construction projects and purchases that cannot be financed within a single year. Earlier facilities and operations studies identified issues with building infrastructure, capacity and accessibility (2007 Facility Analysis Report, Wold Architects and Engineers), as well as specific issues related to Fire Service (2016 Review of Fire/Rescue Services, Fire Rescue Analytics and Five Bugles Design); this study confirmed those findings and augmented them with current visual and analytic assessments of buildings, review of operational workflows, and dialogue with facilities managers and department heads. While the City has maintained its facilities very well, primary building systems (mechanical and electrical) are at end-of-life, there are accessibility issues with features and elements non- compliant with current regulations, including split-level conditions at all three Public Works buildings (without elevators), and most significantly, facilities designed for equipment and vehicles that were significantly smaller than current units, leading to challenges of movement, mobilization, safety and access. Public Works and Public Safety have masonry load-bearing structures, which are limiting for ease and value for renovation, and City Hall is an amalgamation of older structures, with limiting floor-to-floor heights and relatively tight structural grid spacing leading to closely-spaced columns that limit flexibility. These structures would require significant and costly rework to provide the necessary reconfigurations required to accommodate current and future operations and equipment. The 2016 review of Fire Department operations and facilities identified a need for the department to transition from a paid-on-call model to a 24/7 duty-crew model, to provide “13-15 personnel arriving on scene at a structure fire within eight minutes, as recommended by the National Fire BKV GROUP | OERTEL ARCHITECTS 9 GOLDEN VALLEY MUNICIPAL FACILITIES STUDY BKV GROUP | OERTEL ARCHITECTS 9 GOLDEN VALLEY MUNICIPAL FACILITIES STUDY Protection Association [NFPA],”(Review of Fire/Rescue Services, 2016, page ii), and also given ever- increasing challenges to consistently staffing departments through the paid-on-call model, an issue common across the nation. Both the 2016 study and this project’s review affirmed that the operational transition requires facilities that provide the necessary accommodations for duty-crew service. The 2016 Fire/Rescue Study also identified that the City can most effectively operate out of two stations rather than three once a duty-crew model is in place, with a new remote station geographically located to complement the downtown station to meet NFPA requirements for response times; existing Fire Stations #2 and #3 were not efficiently located originally, and a significant part of the coverage radius for each station covers large areas in adjacent cities. Evolutions in the Police Department over the life of the building - both in the nature of service delivery and staffing makeup - have resulted in a facility at capacity in critical areas that currently hinder operations and have a direct impact on hiring and retention:.Two primary examples are the women’s locker room, constructed smaller than the men’s and is currently at capacity without enough space for the number of female officers and staff, and the facility’s single training room serving both Police and Fire, and lacking sufficient space and storage for the full range of training types to be provided on site and on shift. PROJECT PROCESS The work of the project team was informed by regular sessions with two groups: a Steering Committee including most City Department heads, and a citizens Task Force bringing together residents and business leaders with representatives from both the City Council and Planning Commission. From project onset through community engagement and into development of recommendations, these two groups provided objective insights through their respective lenses - whether operational and functional through the Steering Committee or value and community- based from the Task Force. The project followed a process of information-gathering in advance of developing planning options and priority timelines, including tasks to: • Understand the Buildings: Review of prior assessments, studies, capital improvement plans, and deferred maintenance logs. On site review of building and systems by architects, engineers, interior designers and department-specific planners led by department heads and facility managers. • Understand the Operations: Dialogue with department heads and staff about current operations and the impact of facilities on workflow, safety, service, and staffing. Included discussion of mobilization from buildings to services provided within the community, collaboration between departments, issues impacting resident access to facilities and services, and issues where current regulations, requirements, and best practices cannot be accommodated within existing BKV GROUP | OERTEL ARCHITECTS10 EXECUTIVE SUMMARY BKV GROUP | OERTEL ARCHITECTS10 SECTION TITLE facilities. • Engage the Community: Intentional touchpoints with ten key community stakeholders and the Golden Valley community at-large to inform project priorities, to share project progress, and to gain input on planning recommendations. As this work was completed during the COVID-19 pandemic, most of these efforts utilized digital technology - digital meetings, live interactive forums, and interactive websites - in addition to providing physical resources available for resident use. • Explore the Options: Working from our analysis of available data, the project team developed a series of planning options for the downtown campus that encompassed a range of building and site configurations to address project priorities in different ways, as well as the creation of recommended configurations for the two offsite facilities (Public Works and the Remote Fire Station) to inform future site selection. Options were presented to the Steering Committee, Task Force, City Manager, and City Council for review and input, before refinement into two recommended scenarios for public input. • Establish Recommendations, Phasing & Costs: Final recommendations reflect cycles of review with the public and key project stakeholders to fully embody the goals and priorities of this project and the related long- term civic vision. Planning scenarios reflect an understanding of efficient phasing to allow departments to continue operating out of existing buildings without needing to move to temporary locations during construction of new facilities. Working with a Construction Manager for insights into construction phasing and costs, the recommendations include a timeline for phased implementation of projects intended to apportion project costs across a thirty-year timeline to allow the City to manage their debt and responsibly plan implementation. RECOMMENDATIONS, PHASING & COST ESTIMATES As an outgrowth of project assessment, analysis, and dialogue, the team has developed recommendations that address investments into City property and facilities to address known operational and infrastructure issues and to ensure long-term adaptability for the City to continue providing high levels of service across all departments for the next 50 years and beyond. Project recommendations can be defined into two categories: overarching changes, and NE quadrant planning strategies. Overarching Changes: The following changes are critical, regardless of planning strategy or phasing timeline. • Near-Term Transition of Fire Department Operational Model Invest in an operational transition from paid-on-call three station model to a 24/7 duty-crew two station model. This transition will ensure long-term consistency of fire department personnel and operations. In order to make this operational change, BKV GROUP | OERTEL ARCHITECTS 11 GOLDEN VALLEY MUNICIPAL FACILITIES STUDY BKV GROUP | OERTEL ARCHITECTS 11 GOLDEN VALLEY MUNICIPAL FACILITIES STUDY facilities that support and accommodate this model; this project proposes investment in a new remote fire station that meets these needs and can allow the operational transition to occur while the department continues to operate out of the the Downtown Fire Station (Public Safety Building) until it is relocated as part of long-term planning. • Near-Term Renovations to Police Station Perform selective renovations to the existing public safety building to support the department’s initiatives of providing progressive community policing and enhanced officer training. Improvements will also focus around providing the necessary operational and support spaces to strengthen the city’s ability to recruit and retain high-quality law enforcement personnel. • Relocate Public Works from Downtown and Consolidate to A Single Site Relocating Public Works to a site zoned for Industrial uses will allow consolidation of resources to a single site, reducing operating costs and seasonal mobilization, while also freeing up the NE quadrant for redevelopment and eliminating existing issues with equipment and vehicle traffic downtown. • Redevelop NE Quadrant to Meet Downtown Planning Goals Investment in the NE Quadrant will contribute to long-term goals for civic redevelopment by increasing development density, providing expanded housing, commercial, and retail space, and enriching the outdoor spaces and amenities available to residents and visitors. Relocation of City Hall and Public Safety into new facilities meets two broad goals: providing more efficient and adaptable space for long-term service and freeing up two parcels most valuable for multi-use redevelopment. BKV GROUP | OERTEL ARCHITECTS12 EXECUTIVE SUMMARY BKV GROUP | OERTEL ARCHITECTS12 SECTION TITLE PROGRAM REQUIREMENTS The following table summarizes program (space needs) requirements developed during this study, reflecting on existing operations, industry standards, benchmarks, and regulations. Detailed program matrices for each department and facility are including in this report’s appendix. While some facilities such as City Hall do not require a significant increase in square footage, it should be noted that the recommendation to build new is based on the ability to be more efficient with space, with more area devoted to net assignable uses and less for circulation. PLANNING STRATEGIES NE Quadrant Planning Strategies: Proposed planning addresses project requirements, site capacity, and long-term vision for this block identified in the Downtown Study. • Utilize Center of the Block for Public Safety Maintaining co-location of the Police and Fire Departments within a single Public Safety building ensures departmental relationships proven invaluable for providing service in the field while also providing an efficiency of physical resources. Right-sized for the equipment, operations, and requirements of today and the future, the new Public Safety facility including related access drives, aisles, and parking, is most efficiently sited at the center of BKV GROUP | OERTEL ARCHITECTS 13 GOLDEN VALLEY MUNICIPAL FACILITIES STUDY BKV GROUP | OERTEL ARCHITECTS 13 GOLDEN VALLEY MUNICIPAL FACILITIES STUDY the NE quadrant block. • Provide North-South Pedestrian + Bike Path Connecting to Luce Line Trail Holistic redevelopment of the NE quadrant allows for intentional integration of a new pedestrian and bike corridor running North-South through the site connecting to the Luce Line Trail. This element brings additional green space to the block and encourages safe pedestrian access. • Create New East-West Connecting Drives for Access and Parcels Adding two new east-west connecting drives between Winnetka Ave and Rhode Island Ave: one south of the McDonald’s, and one, an extension of the current drive into the Hennepin County library, will increase and manage access into the site, increase pedestrian safety with new crosswalks, facilitate movement of Public Safety vehicles, and help define new parcels for development by the City and for release to developers. The design of the south drive as a multi-use pedestrian-friendly design will allow the new street to serve as expanded event and gathering space when closed to vehicular traffic.RHODEISLANDAVEN.WINNETKAAVE N. 10THAVE N. BASS E T C R E E K BASSE T T C R E E K CENTER PARCEL (4.19 ACRES) SOUTHWEST PARCEL (1.95 ACRES) SOUTHEAST PARCEL (1.70 ACRES) NORTHEAST PARCEL (1.14 ACRES) NEW LI M I T E D A C C E S S S T R E E T / COMM M O N S P A C E NEW ACCESS DRIVE McDONALD'S PARCEL (1.32 ACRES) WATER TOWER GOLDE N V A L L E Y ROAD LUCE LINE TRAIL 200' - 0" N NORTHWEST PARCEL (2.48 ACRES) *CURRENTLY OWNED BY HENNEPIN COUNTY 01 CITY HALL FIRE STATION No. 1 POLICE DEPARTMENT HENNEPIN COUNTY LIBRARY PUBLIC EVENT SPACE GREEN SPACE NEW DEVELOPMENT 02 03 04 05 06 07 01 04 07 01 04 06 02 03 01 07 01 07 07 05 Figure 3 NE Quadrant Site Strategy showing (2) new E-W connectors between Winnetka Ave N and Rhode Island Ave N. This approach to the overall use of this site is based on principles and recommendations developed in the 2018-2021 Downtown Study related to redevelopment of downtown Golden Valley while also reflecting this project’s review of program and operational space needs and access requirements.The proposed approach to site parcelization for release for development and use by the city also allows a phased approach to demolition of existing buildings, reconfiguration of the site, and construction of new structures. BKV GROUP | OERTEL ARCHITECTS14 EXECUTIVE SUMMARY • Integrate Outdoor Public Event Space With a history of hosting larger community-wide events such as Market in the Valley, a seasonal farmer’s market, including space for outdoor gathering and events is a critical component of the project’s program. Planning includes a 1,000 person gathering space and a building for public restrooms, catering support kitchen and administration. Planning approaches also utilize the south access drive as a pedestrian-friendly road designed to be used as shared space for additional gathering and events. • Release Parcels for Redevelopment A key opportunity identified by previous visioning studies and community input is to release portions of the City’s current property for mixed-use redevelopment to provide more residential properties and more spaces for businesses. This is achieved through the relocation of Public Works offsite, and through relocation of Public Safety and City Hall. The proposed planning yields parcels of a size attractive to developers, with key frontages and access. Planning Recommendations Preliminary planning options explored a range of options for the NE quadrant block, each maintaining the existing structures to remain (Library, McDonald’s, water tower) and offering different locations for development and municipal facilities. These options included the common elements already identified (north-south pedestrian/bike path, east-west access drives, integrated stormwater management). Option A retained and expanded City Hall in its existing location, and provided new development only on the corner of Rhode Island Ave and Golden Valley Rd. A series of Option D’s - D, D2, and D3, maximized land for development, with the south third of the site along Golden Valley Rd dedicated to new multi-use development, achieved by relocating City Hall to the north side of the site, either standalone or co-located with a Golden Valley branch library. Following dialogue with project stakeholders about preliminary planning options, two schemes were identified as most fully incorporating project goals and objectives: Option B and Option C. Both schemes reflect the goals of the Downtown Study, the recommendations for overarching changes and NE Quadrant planning strategies identified during this study while also offering two different approaches to maximizing redevelopment. In both schemes, public entries to City Hall and Public Safety face one another, to allow for easy navigation between facilities and to create a stronger sense of identity. • Option B: Maximize Parcels Available for Redevelopment In this scheme, Golden Valley City Hall would relocate to the corner of Rhode Island and Golden Valley Road located at the first floor of a combined development with multi-family housing above. This approach preserves the visible presence of City Hall along Golden Valley Road and leaves the NE parcel of the block for low to mid-rise redevelopment. Co-location of City Hall with residential is an emerging technique that offers economic, cultural, and social benefits, although it also requires forethought and planning in regards to the arrangement between developer and municipality. Per the Downtown Study, it is intended that redevelopment along Winnetka and Golden Valley contain retail and commercial opportunities at street level alongside City Hall, with housing above and parking below. BKV GROUP | OERTEL ARCHITECTS 15 GOLDEN VALLEY MUNICIPAL FACILITIES STUDY • Option C: Separate Municipal Facilities and Development Parcels In this scheme, Golden Valley City Hall relocates to the NE parcel on the block directly opposite the Golden Valley branch library. This scheme provides an opportunity to develop shared exterior resources between both facilities to allow for public events and gathering, and with shared surface parking and below City Hall, encouraging “one-stop” visits to both resources. In this scheme, City Hall, Public Safety and the Library all face one another, establishing a strong civic presence. The south side of the block, two independent parcels, is entirely available for multi-story redevelopment, intended to have commercial and retail at grade, with housing above. This project and the Downtown Study both identified the opportunity of potential co-location of Golden Valley City Hall with the Golden Valley branch of the Hennepin County Library; dialogue with the County and Library indicates that this may be beneficial, although neither entity was prepared to make a commitment at this time. In this scheme, should a partnership be desired and defined, City Hall and the Library could co-locate on the NE or the NW portion of the site, utilizing the site Figure 4 Option B: Maximize Parcels for Redevelopment Entries to the relocated City Hall and Public Safety buildings face inward to the new shared-use street, with surface parking and additional public parking available below the multi-family housing. Subject to future design, the form of City Hall could intentionally be expressed as somewhat distinct from the housing above, to preserve a sense of identity. NOTE: Massings shown for multi-use development are representative only, and align with Downtown Study recommendations for frontages and industry best practices for floorplate depth re: double-loaded corridor and unit sizes. BKV GROUP | OERTEL ARCHITECTS16 EXECUTIVE SUMMARY Figure 4 Option C: Separate Municipal Facilities and Development Parcels In this scheme, City Hall and Public Safety are oriented towards the Library and Basset Creek, providing easy pedestrian access between buildings. Given the topography of the north side of the site, City Hall is a two-story structure with public functions consolidated to a single floor, with staff functions on the other, and a parking garage beneath. The two south parcels are available for development, fronting both Golden Valley and the new shared-use street, with a centralized outdoor event space flanked by stormwater management features that become landscape amenities. Figure 5 Alternate for City Hall and Library Co-Location Leveraging the site topography would allow for at-grade access to City Hall at street level, and at-grade access to the library at the level of basset Creek and a new civic promenade. As shown here, this scheme could include another parcel for multi-family development, or that portion of the site could be left open as public outdoor space. GOLDE N V A L L E Y ROAD RHODEISLANDAVEN.WINNETKAAVE N. 10THAVE N. LUCE LINE TRAIL BASS E T C R E E K PROMENADEPROMENADESECURE STAFF PARKINGPROMENADE04 11 0201 05 09 TO SQUAD GARAGE 06 07 P S P P 08 S S S BASSE T T C R E E K 01 PUBLIC ENTRANCE 1 FLOOR CITY HALL EVENT SUPPORT 1 FLOOR POLICE DEPARTMENT 2 FLOORS SQUAD GARAGE + SUPPORT SPACES BELOW FIRE DEPARTMENT 2 FLOORS OUTDOOR EVENT SPACE 1,000 PERSON CAPACITY S P SECURE PRIVATE PARKING LOT PUBLIC PARKING LOT 02 07 04 03 06 2 FLOORS, SUBSURFACE PARKING MULTI-FAMILY HOUSING 190,000 - 215,000 SF 5-6 FLOORS SUBSURFACE PARKING, GROUND LEVEL RETAIL, HOUSING ABOVE 09 MULTI-FAMILY HOUSING 220,000 - 235,000 SF 5-6 FLOORS SUBSURFACE PARKING, GROUND LEVEL RETAIL, HOUSING ABOVE 10 HENNEPIN COUNTY LIBRARY05 1 FLOOR STORMWATER MANAGEMENT + BERMS 08 MULTI-FAMILY HOUSING 70,000 - 75,000 SF 4 FLOORS SUBSURFACE PARKING 11 10 01 03 200' - 0" N WATER TOWER SHARED USE STREET [PED ./B IKE/AUTO ] NEW ACCESS DRIVE FIRE ENGINE BAY GOLDE N V A L L E Y ROAD RHODEISLANDAVEN.WINNETKAAVE N. 10THAVE N. LUCE LINE TRAIL BASS E T C R E E K PROMENADEPROMENADESECURE STAFF PARKINGPROMENADE04 11 0201 05 09 TO SQUAD GARAGE 06 07 P S P P 08 S S S BASSE T T C R E E K 01 PUBLIC ENTRANCE 1 FLOOR CITY HALL EVENT SUPPORT 1 FLOOR POLICE DEPARTMENT 2 FLOORS SQUAD GARAGE + SUPPORT SPACES BELOW FIRE DEPARTMENT 2 FLOORS OUTDOOR EVENT SPACE 1,000 PERSON CAPACITY S P SECURE PRIVATE PARKING LOT PUBLIC PARKING LOT 02 07 04 03 06 2 FLOORS, SUBSURFACE PARKING MULTI-FAMILY HOUSING 190,000 - 215,000 SF 5-6 FLOORS SUBSURFACE PARKING, GROUND LEVEL RETAIL, HOUSING ABOVE 09 MULTI-FAMILY HOUSING 220,000 - 235,000 SF 5-6 FLOORS SUBSURFACE PARKING, GROUND LEVEL RETAIL, HOUSING ABOVE 10 HENNEPIN COUNTY LIBRARY05 1 FLOOR STORMWATER MANAGEMENT + BERMS 08 MULTI-FAMILY HOUSING 70,000 - 75,000 SF 4 FLOORS SUBSURFACE PARKING 11 10 01 03 200' - 0" N WATER TOWER SHARED USE STREET [PED ./B IKE/AUTO ] NEW ACCESS DRIVE FIRE ENGINE BAY GOLDE N V A L L E Y ROAD RHODEISLANDAVEN.WINNETKAAVE N. 10THAVE N. LUCE LINE TRAIL BASS E T C R E E K PROMENADEPROMENADESECURE STAFF PARKINGPROMENADE04 11 0201 05 09 TO SQUAD GARAGE 06 07 P S P P 08 S S S BASSE T T C R E E K 01 PUBLIC ENTRANCE 1 FLOOR CITY HALL EVENT SUPPORT 1 FLOOR POLICE DEPARTMENT 2 FLOORS SQUAD GARAGE + SUPPORT SPACES BELOW FIRE DEPARTMENT 2 FLOORS OUTDOOR EVENT SPACE 1,000 PERSON CAPACITY S P SECURE PRIVATE PARKING LOT PUBLIC PARKING LOT 02 07 04 03 06 2 FLOORS, SUBSURFACE PARKING MULTI-FAMILY HOUSING 190,000 - 215,000 SF 5-6 FLOORS SUBSURFACE PARKING, GROUND LEVEL RETAIL, HOUSING ABOVE 09 MULTI-FAMILY HOUSING 220,000 - 235,000 SF 5-6 FLOORS SUBSURFACE PARKING, GROUND LEVEL RETAIL, HOUSING ABOVE 10 HENNEPIN COUNTY LIBRARY05 1 FLOOR STORMWATER MANAGEMENT + BERMS 08 MULTI-FAMILY HOUSING 70,000 - 75,000 SF 4 FLOORS SUBSURFACE PARKING 11 10 01 03 200' - 0" N WATER TOWER SHARED USE STREET[PED./B IKE/AUTO] NEW ACCESS DRIVE FIRE ENGINE BAY GOLDE N V A L L E Y ROAD RHODEISLANDAVEN.WINNETKAAVE N. 10THAVE N. LUCE LINE TRAIL BASS E T C R E E K PROMENADEPROMENADESECURE STAFF PARKINGPROMENADE04 11 0201 05 09 TO SQUAD GARAGE 06 07 P S P P 08 S S S BASSE T T C R E E K 01 PUBLIC ENTRANCE 1 FLOOR CITY HALL EVENT SUPPORT 1 FLOOR POLICE DEPARTMENT 2 FLOORS SQUAD GARAGE + SUPPORT SPACES BELOW FIRE DEPARTMENT 2 FLOORS OUTDOOR EVENT SPACE 1,000 PERSON CAPACITY S P SECURE PRIVATE PARKING LOT PUBLIC PARKING LOT 02 07 04 03 06 2 FLOORS, SUBSURFACE PARKING MULTI-FAMILY HOUSING 190,000 - 215,000 SF 5-6 FLOORS SUBSURFACE PARKING, GROUND LEVEL RETAIL, HOUSING ABOVE 09 MULTI-FAMILY HOUSING 220,000 - 235,000 SF 5-6 FLOORS SUBSURFACE PARKING, GROUND LEVEL RETAIL, HOUSING ABOVE 10 HENNEPIN COUNTY LIBRARY05 1 FLOOR STORMWATER MANAGEMENT + BERMS 08 MULTI-FAMILY HOUSING 70,000 - 75,000 SF 4 FLOORS SUBSURFACE PARKING 11 10 01 03 200' - 0" N WATER TOWER SHARED USE STREET [PED./B IKE/AUTO ] NEW ACCESS DRIVE FIRE ENGINE BAY topography for a multi-level structure that would be more efficient, could utilize shared resources such as restrooms, meeting rooms, and parking, while providing more space for shared outdoor amenities and potentially providing an area of land for release to developers. BKV GROUP | OERTEL ARCHITECTS 17 GOLDEN VALLEY MUNICIPAL FACILITIES STUDY Figure 6 Proposed Project Priority Timeline This diagram is intended to communicate critical project priorities - such as creation of the new remote fire station to enable the fire department operational transition - as well as to define the critical path projects: relocation of public works to a new site to free up the downtown NE quadrant for phased redevelopment over time. This diagrams was developed in dialogue with each department, reflecting conversations with the Steering Committee and Task Force, and utilizing the advice of the project’s Construction Manger relative to project sequencing and phasing. This is only intended as a guide, and is subject to the City’s final financial strategy for project funding. Prioritizing Project Phasing The breadth of work included in this project requires a strategy for implementation that allows work to proceed in phases. This allows debt to be managed over time with allocation of funds for discrete facilities in sequence prioritized by existing building limitations and challenges. Following a review of critical issues, construction sequencing, and projects that enable other work, the project team has proposed the following prioritized sequencing for project phasing: a timeline intentionally silent on specific years and organized instead into general timing over the proposed 30 year life span of implementation, with prioritized projects and investments within ten years, larger-scale projects executed in ten to twenty years as budget allows and to facilitate the long- term projects, which may be executed in a twenty to thirty year time frame. As indicated in this sequence, focused renovations within Public Safety and City Hall’s existing facilities are recommended in the next fifteen years to address critical issues and to ensure smooth operations until departments move to new structures in 2040 and 2050. BKV GROUP | OERTEL ARCHITECTS18 EXECUTIVE SUMMARY GOLDEN VALLEY MUNICIPAL FACILITIES MASTER PLAN PROJECT COST PROJECTIONS Following development of program recommendations and a strategic long-term phased implementation plan, cost estimates were prepared drawing on benchmark cost data for projects of similar sizes and types within the Twin Cities Metropolitan area. The costs listed below are identified by proposed timeline for construction; planning and design work would precede these dates by 12 to 24+ months. Cost projections include two primary components: construction costs (“hard” costs) related to physical development of a building site and construction or renovation of a structure, and “soft” costs that encompass professional design and engineering services, furniture, fixtures and equipment (FF&E), security and low-voltage technology (AV/IT), moving costs, permitting, and special inspections (as required by building code). When costs are developed in a preliminary planning phase such as this, there is much that is as yet unknown about project scope and requirements, so each contain a line item for contingencies - or the unknowns of a project: in construction costs there is both a design contingency (to address changing scope and design requirements identified through the design phases) and a construction contingency (to address unforeseen conditions that arise during construction), and it is highly recommended for an owner to carry their own owner’s contingency within their “soft costs” of the project, as a protection of overall project budgeting. Project costs have been provided in 2021 dollars, with a separate line item for escalation (or inflation) of projected costs to the midpoint of construction, using a national and industry benchmark of 3.5% per year, on average. BKV GROUP | OERTEL ARCHITECTS 19 GOLDEN VALLEY MUNICIPAL FACILITIES STUDY CRITICAL NEEDS BKV GROUP | OERTEL ARCHITECTS 19 FIRE DEPARTMENT BACKGROUND: EVOLUTION IN OPERATING MODELS In 1943, the city of Golden Valley authorized mobilization of a 39-member volunteer fire department which operated out of two fire stations until the 1970s, when the city closed its oldest station and built Fire Stations #2 and #3. (https://www.goldenvalleymn.gov/fire/history.php). The department’s current operating model is paid-on-call, wherein volunteers with full-time jobs are ‘on call’ part time and respond to notifications when received. In this model, all firefighters on call during a shift must report to their station, with those arriving first reporting out to a call unless it is significant enough to warrant a larger crew. This has two outcomes that impact current critical issues: 1.Response times (the time it takes between an incoming call and the fire department reporting to that location) currently include the time it takes firefighters to travel from work or home to the station, and then from the station to the location of a call. This can be challenging when firefighters work or live at a distance from the stations. 2.All on-call firefighters in a given shift must report to the station when a call comes in. This means firefighters may report to the station only to find out they are not needed, which is both a loss of time and also a missed opportunity to engage in the act of firefighting. The current paid-on-call operating model relies on volunteers that are willing and able to accommodate the unpredictability of on-call work, and must have work and home structures that support unpredictable departures, a specific challenge when both parents work outside the home, which is an increasing number of households. Across the country, there has been a decline in paid- on-call service, as work and life commitments take precedence. Even as early as 2007, the U.S. Fire Administration summarized this shift: Fire departments can no longer count on the children of current members following in their parent’s footsteps. Nor can they count on a continuous stream of community people eager to donate their time and energy to their local volunteer fire department. Adding to the problem, departments cannot rely on members staying active in the volunteer fire service for long periods of time. Retention and Recruitment for the Volunteer Fire Services https://www.usfa.fema.gov/downloads/pdf/publications/fa-310.pdf Since XXXX the City of Golden Valley has committed to recruitment and retention, with outcomes eroded by the transition of nearby St.Louis Park, Eden Prairie, Plymouth and Minnetonka to a majority of duty crew firefighters. In a 24/7 duty crew model, volunteer firefighters are scheduled in shifts providing active service 24 hours a day, with firefighters based in a fire station during their shift. A 24/7 duty crew model offers key benefits and consistency: 1.Response times are more efficient, with firefighters reporting directly from a station to a call. 2.Within each shift, firefighters based out of a station are available for calls, can complete required training, and can contribute to equipment maintenance. BKV GROUP | OERTEL ARCHITECTS20 CRITICAL NEEDS 3.Shifts are scheduled and known, and can be coordinated and planned in advance with other work and life commitments. BACKGROUND: 2016 STUDY In 2016, the City of Golden Valley invested in a Review of Fire/Rescue Services, a study and report on fire service facilities and operations led by Fire Rescue Analytics LLC and Five Bugles Design. The purpose of the study was to assess the “sustainability, effectiveness, and efficiency” of GVFD operations, to provide recommendations for improvements, and to “assess the location of the city’s three fire stations and consider alternative options, if any.” (Review of Fire/Rescue Services, 2016, page ii). Key observations and recommendations within this study that were reaffirmed as part of this current municipal facilities study include: A.While the current three fire stations provide adequate coverage of the city, a majority of the effective service area for Fire Stations #2 and #3 are outside of the city’s boundaries. i. Consolidation to two facilities makes staffing, operations, and maintenance more efficient, and can allow GFVD to reduce the total amount of equipment while providing equal or greater levels of service. B. Transitioning from a three station paid-on-call model to a two station duty crew model is critical for consistent staffing and will increase operational efficiency by improving response times by two and a half minutes to four minutes overall. i. Transitioning to a duty crew model provides a more attractive working model for firefighters, reduces response times, and provides a more viable long-term operating model for GVFD. C.None of the existing three stations have the physical capacity (in site size or building construction) to accommodate the necessary facilities for 24/7 duty crew operations, and each was designed for equipment and apparatus of yesterday significantly smaller than today’s equivalents. i. Returning Golden Valley to a two station model is more cost effective long-term, and investment in new facilities will provide staff and equipment spaces of a type and size required by today’s operations. BKV GROUP | OERTEL ARCHITECTS 21 GOLDEN VALLEY MUNICIPAL FACILITIES STUDY Fire Department: Figures 1-3 Fire Trucks (Apparatus) (Left to Right): Golden Valley ‘Old Number One,’ a 1923 Oshkosh used by the department and currently in storage at Fire Station #2. This valuable piece of history is not currently on public display due to lack of space. Golden Valley No. 8, historic photo circa 1960s; note the automobile-width truck. Golden Valley Ladder 11 as housed in Fire Station #1 (combined Public Safety building), 2020. Apparatus are wider, longer, taller, and heavier than in the past. BKV GROUP | OERTEL ARCHITECTS22 CRITICAL NEEDS GOLDEN VALLEY FIRE DEPARTMENT CRITICAL ISSUES: • Critical Issue #1: Urgent Need for Operating Model Transition GFVD continues to face challenges with recruiting and retention, with personnel committing to duty crew service with adjacent communities. As identified in 2016, a transition from paid- on-call to 24/7 duty crew will provide the scheduling consistency valued by current and prospective firefighters while also providing shorter response times. This operational transition requires investment in new physical facilities in order to provide the space types required, as existing facilities do not have the capacity for such changes. - See item #2 below. A duty crew model will still allow Golden Valley to utilize volunteer firefighters, which is more cost- effective than a force entirely staffed by career firefighters. • Critical Issue #2: Facilities that Support Needs & Requirements: • Duty Crew Operations With a duty crew model, staff are based out of a station during their shift within a 24-hour period, which requires facilities to include living facilities such as a kitchen, day room, bunk rooms, and shower/changing/locker areas, as well as on site training facilities. Existing facilities do not have any extra space to incorporate the full complement of space types required to support this recommended operational model. • Accommodating Equipment and Apparatus Since the original fire stations were constructed nearly fifty years ago, the size of equipment and apparatus have increased: vehicles are wider and longer, and each firefighter carries additional gear and apparatus. Currently, in all three stations, firefighter lockers are located within vehicle bays, no longer considered a best practice - see next item. Fire Stations #2 and #3 require backing in trucks when returning from a call, which increases opportunities for vehicle and building damage; Fire Station #1 is designed as pull-through, but as vehicle bays are shared with the Police Department, the facility largely functions as pull-in/pull-out. The physical structure of existing facilities was based on older, smaller vehicles and equipment; “up-sizing” facilities for current equipment sizes would be a costly enterprise when the primary structural systems of the building are impacted. Fire Department: Figure 4 Building Limitations Fire Station #2 with Engine 21: the existing garage bays were designed at a time when apparatus were smaller. As shown in the photograph, current bays are not sufficiently wide enough, causing issues with back-in parking (potential vehicle and structural damage) and with turn-out after firefighters return to the station - i.e. removal of firefighting gear and equipment. BKV GROUP | OERTEL ARCHITECTS 23 GOLDEN VALLEY MUNICIPAL FACILITIES STUDY • Best Practices for Firefighter Health & Safety Nationally and globally, firefighter health, safety, and wellness continue to be researched and understood, acknowledging the risks that accompany operational exposures as structures and associated material burn, and the physical and psychological outcomes of such a challenges job. Current best practices and regulations for fire station design provide separate and contained zones for vehicles and equipment, used versus clean firefighter gear, and areas for cleaning and drying used gear and hoses. GVFD’s current facilities were designed around older models, and lack the ability to provide or separate these recommended zones. In addition, investment in spaces that support physical and psychological wellness can ensure each individual’s health and resiliency while also reducing negative impacts such as physical injuries and PTSD. Fire Station #1, located within a shared Public Safety complex in downtown Golden Valley is currently the only facility that has physical training space, though all three facilities lack capacity for any of the other recommended space and amenities that support physical and psychological health. • Provide Gender Equity A 2020 National Fire Protection Association (NFPA) Report notes that 8% of firefighters nationwide are female, with women making up 11% of volunteer firefighters. While this number may seem low, it is growing, and represents a significant shift from the 1970s, when Golden Valley’s current fire stations were constructed. It is critical that the city’s facilities offer equitable resources - in type, size, and amenities - for firefighters of both genders, as this impacts hiring, retention, and operations. Fire Department: Figure 5 Lack of Zoning Fire Station #1. Firefighter lockers and gear are currently located within the apparatus bays (at all three fire stations). This places clean gear and equipment adjacent to vehicles, an issue related to proper zoning of uses. Current best practices use zoning to separate out different spaces and functions in a fire station related to potential contaminant exposure: hot zones for highest hazard, yellow zones for transition, and green zones for low hazard. Ideally, fire apparatus and returning gear (exposed to contaminants at a fire) are separated from areas of cleaning and drying, and from areas where clean gear is stored and personnel are working at the station. BKV GROUP | OERTEL ARCHITECTS24 CRITICAL NEEDS Fire Department: Figure 6 Response Times Top: 2016 Response time map of current 3- Station Model by Five Bugles. This model provides adequate coverage to Golden Valley, with Fire Stations #2 and #3 providing coverage beyond Golden Valley. At left: 2021 response time map of service from Fire Station #1 (only), indicating sufficient coverage of central and west Golden Valley. A future remote fire station should be located to provide complimentary coverage of the City’s east side with a comparable level of response time, leveraging access to Highway 100 and Highway 55. Fire Chief John Crelly has noted departmental analysis indicates a transition to a paid-on-call 2-station model will reduce overall response times by ensuring staff are at stations when calls are received. BKV GROUP | OERTEL ARCHITECTS 25 GOLDEN VALLEY MUNICIPAL FACILITIES STUDY POLICE DEPARTMENT BACKGROUND Golden Valley’s Police Department currently operates with a community policing model: one centered on relationship-building with the community including positive connections and partnerships, early intervention, and prevention. Through this model, the department provides progressive community service and law enforcement, including crime prevention, patrol, investigation, and prosecution. As noted by the International Association of Chiefs of Police: “Well-designed police facilities enable staff to perform their duties efficiently, effectively, and securely. As a facility ages, it may no longer meet the needs of an evolving department, thus, negatively affecting morale, efficiency, safety, security, technology, and overall delivery of police services.” (https://www.theiacp.org/sites/ default/files/2019-10/Police_Facilities_Planning_Guidelines.pdf). More than five decades have passed since the design and construction of the current facility: operational changes during that time, and ongoing at present, shape needs that the current facility cannot accommodate. With this, the Golden Valley Police Department has struggled to recruit and retain staff as the facility lacks appropriate operational and staff support spaces, losing quality officers to neighboring communities. When Golden Valley’s police facility was originally constructed in 1966 as a one story structure plus lower level, it was a standalone building designed around an older model of service and operations. The building was originally expanded in 1973, partially renovated in 1989, expanded in 1995 when Fire Station #1 was attached to the back (east) of the building, and underwent a focused interior renovation in 2005. These updates to the facility offered incremental improvements in functionality, while also introducing complexity as additional program spaces and uses were added. Police Department: Figures 1 & 2 Public Lobby and Interview Room The existing lobby is modest, with a single two-person interview room as the extent of unsecure space where the Police Department can meet with the public. To meet with the Fire Department, visitors must be escorted through secure areas. 26 BKV GROUP | OERTEL ARCHITECTS CRITICAL NEEDS Two aspects of the facility continue to impact Police Department operations: • The existing building is of masonry load-bearing walls at both the exterior and the interior. This type of construction, while extremely durable, is also extremely limiting, as adjustments to individual walls, rooms, or areas, requires significant demolition and construction rework. This makes otherwise achievable renovations within an occupied structure largely infeasible for cost and operational impact. • The Police and Fire Department share a single training room for staff training and for community training and outreach; scheduling conflicts and lack of specialized training space often required the Police Department to utilize offsite training facilities, which has added direct costs as well as personnel costs for off-shift training as well as travel time. GOLDEN VALLEY POLICE DEPARTMENT CRITICAL ISSUES: • Critical Issue #1: Facilities that Support Gender-Equitable Hiring and Retention As of this report, the Golden Valley Police Department employs more female staff, including officers, CSOs and Community Response Officers (CSRs) than it can provide dedicated lockers for, as the women’s locker room is half the size and capacity of the men’s locker room and is fully assigned. This is a significant issue, as it impacts equitable and safe resources that are due to each employee, regardless of gender. Within the process of this study, this limitation has impacted the department’s hiring process. The Police Department also shares its shower facilities with the Fire Department, as there are no dedicated Fire Department locker rooms. Beyond the limited locker room space and overall number of lockers, the lockers provided are not adequately sized, nor designed for law enforcement needs. The limited space within the lockers and lack of proper ventilation requires individuals to store items outside of their assigned locker units. • Critical Issue #2: Sufficient, Secure Space for Vehicles and Equipment Currently the Police Department has a single-bay sally port (secure entrance for transporting those under arrest) and a three-bay garage that are directly connected to the police station, 27BKV GROUP | OERTEL ARCHITECTS GOLDEN VALLEY MUNICIPAL FACILITIES STUDY with an additional multi-bay garage across the driveway that is attached to the Public Works Parks and Recreation building. These garages are designed for passenger vehicles only without additional space for work, supplies, or indoor storage of impounded vehicles, with the multi-bay garage so shallow that a squad vehicle pulled in touches the face of a workbench, preventing it from being used when vehicles are parked. The department utilizes a portion of the Fire Department’s apparatus bay to park a larger tactical van, and has to park an additional equipment truck in the open parking lot shared by Police and Fire because of a lack of indoor space. The open, un-secured lot shared by both departments is challenging: there are 26 spaces utilized for both department vehicles as well as for staff vehicles for both departments. There are regular and frequent issues when paid-on-call firefighters respond to a fire and double- park their vehicles because of a lack of spaces, leaving police staff blocked in. Current best practices would provide a gated, fenced parking lot for Police Department use, and would provide heated garage space for all departmental vehicles to protect sensitive equipment and supplies such as defibrillators, laptops, and narcan, which otherwise need to be removed from vehicles when they are parked, which increases the number of steps an officer must take before responding to a call. • Critical Issue #3: Meeting Space for the Public Outside of Secure Areas Space for the public within the existing building is severely limited: there are two small benches in the lobby, a single two-person interview room accessible from the lobby, with two spaces requiring a police escort: an additional interview room located within the department’s office space, and community events held in the shared training room on the building’s lower level. This lack of space, and location of public areas within spaces otherwise considered secure impacts workflow, projects more of a sense of fortification than welcome, and requires additional procedures for staff to engage with the public. Visitor arrival at a police department impacts perception and response: visitor-friendly public spaces typically include a safe, comfortable waiting area, multiple meeting rooms for use by staff as well as custody exchanges and connection with social services, and direct access to a community meeting room for training and events. The building’s existing layout limits the ability to renovate to provide such accommodations. Police Department: Figures 3, 4, and 5 Women’s Locker Room, Vehicles Stored in Fire Department Garage, and Shared Training Room. Women’s locker space is at capacity without providing enough lockers for current staff or for future hires. Both men’s and women’s locker rooms are too small for current gear and equipment. Subject to availability, the Police Department parks one of their two vans within the Fire Department’s apparatus bay, which prevents the bay from being used as pull-through access (which would be more efficient and safe). The training room serves three purposes: Fire Department and Police Department training, as well as community training and events. There is no furniture storage, so reconfiguration of the room for different types of Police training is severely limited. The room is undersized for current department sizes. BKV GROUP | OERTEL ARCHITECTS28 CRITICAL NEEDS • Critical Issue #4: Work Space for Evolving Operations Since the last interior renovation in 1995, operations of the Golden Valley Police Department have continued to evolve with that of the discipline nationwide. With a focus on community policing and overall public safety, the department continues to augment its staff of sworn police officers with non-sworn Community Service Officers (CSOs), Community Response Officers (CSRs), with a goal of adding social services staff as budget allows. The Department of Justice recommends: “Changing the climate and culture means supporting a proactive orientation that values systematic problem solving and partnerships. Formal organizational changes should support the informal networks and communication that take place within agencies to support this orientation.” (https://cops.usdoj.gov/RIC/Publications/cops-p157- pub.pdf) Currently staff space is at a premium throughout the department, with single-use offices shared by two staff or more, and no dedicated space for CSOs, CSRs, and social services, ideally located adjacent to the building entry for easier and more fluid engagement with the public. • Critical Issue #5: Dedicated Training Space Regular training is a state and local requirement for police officers, within a system that begins with basic training, includes field training, and relies on in-service training throughout the year. The Golden Valley Police Department currently shares a single training room with the Golden Valley Fire Department, a limiting factor for both departments: • Competing demands for scheduling: As it is the only space sufficiently large enough in the building for each department to meet as a group both Police and Fire must coordinate use of the training room for departmental meetings, for planned training, and for use with each department’s community outreach and community training events. While the City’s nearby Brookview complex has capacity for such events, it is so popular that it is typically not available for City use. The current training room is most often set up in “classroom” mode, with rows of tables facing two front screens and boards; this type of setup applies to a minority of in- service training, which also includes a broad application of scenario-based training, where officers practice de-escalation, and the five levels of force: presence, verbal response, empty-hand techniques, non-lethal weapons use, and lethal weapons use. Newly constructed and renovated police facilities typically provide two separate training spaces, one for classroom-style learning, and one for ‘use of force’ training; this facilitates department’s investment in practicing methods of engagement and building skills that align with the department’s focus on progressive community service. • Offsite training: GVPD utilizes offsite training locations for two reasons: when space is not available within the building, and when specialized training resources are required. Offsite training brings added costs: rental and usage costs, labor costs associated with staff traveling from the station, and for training that brings staff together outside of normal shift hours. When in-service training can be provided within a station, these BKV GROUP | OERTEL ARCHITECTS 29 GOLDEN VALLEY MUNICIPAL FACILITIES STUDY costs of money and time are greatly reduced. For example, the current indoor 2-lane firing range does not provide sufficient space for GVPD training activities. Training is typically completed in groups of 4 or more at a time, which the current facility can not accommodate. In addition, scenario-based training can not be completed within the current space and requires off-site training. BKV GROUP | OERTEL ARCHITECTS30 SECTION TITLE PUBLIC WORKS DEPARTMENT BACKGROUND Golden Valley’s Public Works department encompasses four divisions: Park Maintenance, Street Maintenance, Utility Maintenance, and Vehicle Maintenance, and utilizes both full-time and seasonal staff to maintain the City’s infrastructure, parks, and municipal vehicles and buildings. Work includes planned maintenance projects throughout the year, seasonal maintenance and response, and emergency repairs. Public Works currently operates out of four primary buildings on two different sites: Parks & Streets, Utilities, and Vehicle Maintenance located within the civic campus on the NE quadrant in downtown Golden Valley, and Cold Storage located at 10th Avenue N, approximately 1.7 miles away. Since the construction of Public Works’ facilities between fifty and thirty years ago, there have been two key evolutions in the field: an overall increase in equipment and vehicle sizing, and a trend towards specialization of vehicles, with features that are unique to key maintenance tasks. The two main vehicle buildings: the combined Parks and Streets Maintenance and Utility Maintenance, are beyond capacity, so additional and specialty seasonal vehicles and equipment are stored offsite at 10th Avenue. When those items are needed, two staff at a time must drive over - one acting as a shuttle, and the second to pick up the required equipment. In addition to Public Works Figure 1 Map of Golden Valley Streets, Trails and Sidewalks Public Works maintains the City’s 34.4 miles of sidewalks and 14.6 miles of asphalt trails, more than 1,035 acres of parks and open space, in addition to the city’s sanitary sewer, water, and storm sewer systems. BKV GROUP | OERTEL ARCHITECTS 31 GOLDEN VALLEY MUNICIPAL FACILITIES STUDY Public Works Figures 2 and 3 1969 Site Plan and 2021 Site Plan The City Hall Campus has evolved greatly over time, with unpaved land identified as a home for locating Public Works just after this photo was taken. Public Works’ three facilities and related parking and yard occupy a majority of the City’s available land on a block identified for greater density and a balance of municipal functions and multi-use development. equipment storage, the 10th Avenue site is also home to the city’s primary yard storage: salt, sand, bulk materials storage, site collection areas for yard waste, and miscellaneous un-conditioned (“cold”) storage for Public Works as well as the Police Department. With salt and sand offsite, additional time and planned mobilization is required before and after snow events. Public works departments are not typically located in the heart of a municipal civic center, as public works is a high-traffic often high-noise endeavor, with space use requirements for both buildings and grounds that are expansive, given the nature of the work. With development and increasing density of Golden Valley that has emerged over the last fifty years, public works was initially placed on what was at the time an under-utilized area of cleared land in proximity to City Hall and the Police Department. While the department provides a consistent and high level of service, this is achieved with mobilization that disrupts traffic in the heart of downtown Golden Valley, and on a currently open campus where pedestrians cross from the Calvary Center BKV GROUP | OERTEL ARCHITECTS32 CRITICAL NEEDS Cooperative through Public Works vehicle driveways to McDonald’s, and where visitors to City Hall cross paths with Public Works use of the drive aisles in the main public parking lot. GOLDEN VALLEY PUBLIC WORKS DEPARTMENT CRITICAL ISSUES: • Critical Issue #1: Address Operational Space Deficiencies The size - both in footprint and in vertical height - of equipment and vehicles has increased significantly since the city’s public works facilities were first constructed. As an example, the existing facilities provide a 392 SF parking stall for snow plows; current industry standards given equipment sizing are now 810 SF, more than double in size. With buildings originally constructed out of concrete - i.e. not easily or cost-effectively modified - public works operations require additional time and care to move vehicles and equipment in and out of the garages, as parking stalls are too small, with vehicles using portions of shared center drive aisles for parking. It is not uncommon for additional vehicles to be moved in order to allow others to be accessed or parked, and multi-point turns, requiring more than a half a dozen adjustments, are commonplace for most of the fleet’s larger vehicles. These requirements are not simply an inconvenience of time for drivers and staff who must assist with parking, they also increase the likelihood of vehicle damage, structural damage to garage facilities, personnel injuries or combinations thereof. • Critical Issue #2: Consolidate Resources & Relocate from Downtown The challenges of a two-site Public Works Department add to annual labor and operating costs, and consolidation of primary facilities would be beneficial while providing greater adaptability long-term. With a lack of conditioned storage for all key vehicles, seasonal equipment is currently housed offsite at 10th Avenue Cold Storage; when it is time to transition from summer to winter service, the relocation of vehicles from downtown to 10th Avenue takes one month. Fall/Winter 2020 offered an example of this complexity: with an early snowfall that required mobilization of plows, and a few weeks later a significant warm period requiring lawn movers to be remoblized. The ability to house all major equipment in a single location would allow Public Works to be more nimble in responding to whatever conditions are required throughout each year. Public Works’ current configuration: both over-full facilities and a two-site setup, cause daily impacts to operations and efficiency, as staff have to coordinate access to tools, materials, and storage that are either located behind other elements or equipment, or located at the other facility. Independently, these are managed conditions; in the aggregate this increases time diverted away from service delivery and work. The Downtown Study identified the NE quadrant as a key component of long-term vitality and use for Golden Valley. Relocating Public Works from the NE quadrant to a new location in the city properly zoned for Commercial/Industrial use both benefits Public Works operations with a consolidated location, and also is the ‘key” to unlocking long-term redevelopment of the NE quadrant to meet the City’s Comprehensive Plan and Downtown Study goals for increased development, density, and resources in the heart of downtown. BKV GROUP | OERTEL ARCHITECTS 33 GOLDEN VALLEY MUNICIPAL FACILITIES STUDY • Critical Issue #3: Meet Industry Standards, Regulations, and Applicable Codes Each of the three main Public Work's buildings on the NE Quadrant were built at a time of different standards and regulations, and investment in new facilities will allow the department to comply with current requirements and best practices: • Equitable locker and restroom facilities for both male and female employees. Some of the existing buildings lack any female restrooms. • Separate of equipment bays from office space for acoustics and air quality management. • Provide sufficient space for vehicle and equipment, access, and maneuvering. • Ensure accessible facilities for staff and visitors. Parks and Streets and Utility Maintenance are both split level buildings without elevators. Vehicle Maintenance is accessible at grade but lacks an elevator to access second floor office space. BKV GROUP | OERTEL ARCHITECTS34 CRITICAL NEEDS - This Page Left Blank Intentionally - BKV GROUP | OERTEL ARCHITECTS 35 GOLDEN VALLEY MUNICIPAL FACILITIES STUDY CITY HALL / ADMINISTRATIVE DEPARTMENTS BACKGROUND Golden Valley’s City Hall is home to the City’s administrative functions: those related to customer service such as the DMV and general services (billing and assessments), those that have both administrative and service functions such as elections and the physical development department, responsible for engineering, planning and inspections, and those departments which are focused on municipal operations: finance, information technology, communications, human resources, and legal. The distinct functions of a City Hall - service, administrative, and council - have distinct spatial requirements that the current building does not accommodate: • Service functions benefit from being visible and easily accessible. Clear wayfinding should allow all visitors - those new to the building, and those who have visited before - to navigate to their destination without confusing or complex directions. • Administrative offices should support completion of focused tasks, while leveraging adjacency of departments to foster collaboration and dialogue. Proximity rather than distribution of administrative offices throughout a city hall also allow for greater spatial efficiency by reducing duplicate amenities and more flexibility and adaptability as department operations and staffing change over time. • Council chambers and associated meeting and waiting areas are the core spaces that communicate the transparency and connection between residents and their government. These spaces should also be visible and easily accessible, while providing sufficient safety measures and acoustic privacy. Traditionally, City Halls have been located in an easily accessible, visible, and central location within a community to provide direct access to key resources and as a physical gesture of the transparency and accountability of government. Golden Valley’s current City Hall includes portions of structures from past decades, including the oldest portion which dates to 1957 and establishes the building’s current position at the corner of Golden Valley Rd and Winnetka Avenue. Over time, additions and renovations have adjusted the front of the building, most recently in the 1980s relocating the front entry from facing south onto Golden Valley Road to facing east towards Public Safety, and inwards on the NE Quadrant block. City Hall and Golden Valley’s administrative departments do not face the same level of issues with the current physical facility - i.e. none related to operational safety or overall building accessibility: critical issues listed would enhance visitor experience and service delivery, streamline operations, and ensure longer-term adaptability. Most critically, this study has affirmed the recommendation of the Downtown Study to relocate City Hall from the southwest corner of the block in order to leverage this prime site for multi-use and multi-story redevelopment at the key crossroads of Golden Valley Road and Winnetka Avenue. BKV GROUP | OERTEL ARCHITECTS36 CRITICAL NEEDS GOLDEN VALLEY CITY HALL / ADMINISTRATIVE DEPARTMENT CRITICAL ISSUES: Retaining City Hall in its present location has been identified as a block to long-term development opportunities for the NE Quadrant; at the same time, departments within the facility are largely “making do” with the nearly fifty year old facility. The critical issues outlined in this section would be resolved in any new facility that employs industry best practices for city hall space planning. As part of overall project phasing, investment in a focused renovation of the existing building would enhance the visitor experience and improve operations as the building remains in use until such time as a new structure is built (currently targeted for 2050 in this project’s recommendations). • Critical Issue #1: Provide Clear Welcome & Wayfinding The 1980’s renovation and addition re-oriented the building’s entry so that City Hall and Public Safety entries face one another. While this gesture is successful in establishing a connection between these two municipal buildings, it has created two key challenges: • City Hall turns its back to the key intersection of Winnetka Avenue and Golden Valley Road. In addition to no visible building entry from these streets, the landscape also rises and shields the building from view. • Arrival from the building’s main entry is confusing, as there is no welcome desk or main lobby and waiting area: visitors open the door to the building and immediately meet the frequently large waiting lines of the Department of Motor Vehicles (DMV), located immediately adjacent to the entry vestibule. With limited overhead signage, and no other service areas in sight, visitors often wait in line at the DMV believing it is the information desk. Continued wayfinding within the building is also complex and confusing: at the entry level, visitors must find their own way through two changes of direction to reach the service desk for the Physical Development Department or the public restrooms, and at the second floor three turns are required from the stairs and elevator to reach the City Council chambers and the main administration service desk. City Hall Figures 1 and 2 Main Entry & DMV Waiting and Second Floor Hall to Council Chambers The modest space available for overall building arrival is evident in this photo, taken in October of 2020, when temporary COVID-19 protocols included a small staff desk immediately in front of the DMV waiting area. On the second floor, the challenge of blind corridors is evident, with no visual connection into the Cit Council chambers (immediately behind the empty display cases at left) In both photos note the small directional signage placed out of immediate line of sight. BKV GROUP | OERTEL ARCHITECTS 37 GOLDEN VALLEY MUNICIPAL FACILITIES STUDY • Critical Issue #2: Address DMV Visitor Volume & Flow As noted above, there are currently regular conflicts between the waiting lines for the DMV, which occur within a main corridor and access to Physical Development and public restrooms. This high volume service department is also a source of revenue. Investing in additional space to provide for onsite driver’s license pictures would expand services and would also be an opportunity to separate the waiting area for DMV with overall access and circulation for visitors to City Hall. • Critical Issue #3: Provide Sufficient Space for Public Functions Given the limitations of the existing building, with remnants of structural bearing walls and relatively tight column spacing, the layout is based on corridors used largely for movement and enclosed department suites fronted by service counters. This means there is extremely limited waiting space: none at the building entry, limited benches and seating at each of the key service windows (DMV, Physical Development, and General Services), and none outside of the City Council chambers at all. This lack of space impacts visitor comfort, leads to crowded lines during times of high usage, and is a limiting factor when the building is more heavily used. In addition to a lack of waiting space, the building does not have sufficient public meeting rooms, i.e. rooms that are directly accessible from public corridors. These are useful for staff to meet with the public without having to bring them into staff work areas, can be used by community partners to connect with residents, and can be available for use by residents. • Critical Issue #4: Relocate City Hall for New Development at Key Intersection Critical to the fulfilling some of the goals set forth in the City’s 2040 Comprehensive Plan and explored further in the Downtown Study, it is highly recommended to relocate City Hall from the highly desirable corner of the intersection of Golden Valley Road and Winnetka Avenue. This parcel would be extremely attractive to developers, and consistent with the vision of the City Hall Figures 3 and 4 Council Chamber Hallway/Waiting and Physical Development Waiting Area While the corridor immediately adjacent to the City Council Chambers is wider than average, there is no seating, and gatherings in the hallway are both visually and acoustically distracting through the full-height non-acoustic glass partitions into the chambers. A 2019 renovation reconfigured the service counters at Physical Development, providing a modest waiting area where there was previously none. Photo taken October 2020 when City Hall was largely closed to the public. BKV GROUP | OERTEL ARCHITECTS38 CRITICAL NEEDS Downtown Study, would help establish a more strong visual presence at this key intersection, with multi-use, multi-story development. Proposed planning recommendations offer alternatives that either allow City Hall to maintain a street presence along Golden Valley Road, or to relocate to the NE corner of the block, where it can have a different sort of visibility and prominence in relation to Basset Creek and the Library. City Hall Figure 5 July 2019 Street View of the Intersection of Golden Valley Road (right) and Winnetka Avenue N (left) City Hall is located behind the pergola, trees, and landscape berm which faces this key intersection. With prominent visibility, this corner of the block would be significant in establishing a new sense of arrival and destination within the heart of downtown Golden Valley. BKV GROUP | OERTEL ARCHITECTS 39 GOLDEN VALLEY MUNICIPAL FACILITIES STUDY - This Page Left Blank Intentionally - APPENDICES 40 BKV GROUP | OERTEL ARCHITECTS SECTION TITLE 41BKV GROUP | OERTEL ARCHITECTS GOLDEN VALLEY MUNICIPAL FACILITIES STUDY 1. Introduction Baker Tilly Municipal Advisors completed a fiscal impact analysis of the 2021 Municipal Facilities Master Plan. The purpose of the analysis is to provide policymakers financial information to assist with decision-making. Specifically, the analysis provides estimates and information of the following: • Statutory authority and ability to finance the facility projects • Estimated property tax levies and tax rates • Impact on key debt ratios used by credit rating agencies Financial projections beyond five to ten years are speculative and can be impacted by unforeseen events, such as service level and law changes at both the state and federal levels, macro-economic events, land- use and demographic changes, to name a few. Nonetheless, long-range financial planning is necessary to begin to understand the potential, broad impact of large capital improvements, with the understanding that assumptions need to be continually updated and refined. 2. Primary Assumptions A financial impact analysis is highly dependent on assumptions. The primary assumptions in the analysis include: • Estimated construction cost and timing of new facilities • Repayment term of projects financed with bond proceeds and, to a lesser extent, interest rates • Financing of existing capital improvement plan (CIP) using recent financing terms • Estimated market value (tax capacity) changes from price appreciation and redevelopment • Annual growth in General Fund and HRA levies 2.1 Facilities Cost and Financing Assumptions The facilities projects, construction year and financing terms with the estimated annual debt service payment is shown in the tale below. Project Fire Hall #2 and City Hall Renovation New Public Works Facility Demo Existing Facilities & Add Site Infrastructure Public Safety New City Hall & Below Grade Parking Construction/Bond Issue Year 2024 2030 2030 2040 2050 Total Development Cost $9.2M $50.8M $5.5M $61.5M $33.8M Repayment Term 30 30 30 30 30 Interest Rate 3.0% 5.0% 5.0% 5.0% 5.0% Annual Payment $471,000 $3,306,000 $359,000 $3,998,000 $2,201,000 2.2 Existing Capital Improvement Plan Cost and Financing Assumptions The table below shows the existing CIP, financing terms and the estimated annual debt service. Beginning in 2026 the City will finance a smaller street infrastructure program of approximately $2.0 million with costs increasing 3.0% annually thereafter. Construction/Bond Year 2022 2023 2024 2025 2026 Project Cost $3.95M $3.95M $3.95M $0.00M $2.00M Percent Assessed 20% 20% 20% 20% 20% Repayment Term 20 20 20 20 20 Interest Rate 2.5% 3.0% 3.0% 4.0% 4.0% Annual Payment $203,000 $212,000 $212,000 $0 $118,000 2.3 Other Assumptions Additional assumptions utilized in the analysis include: • Current debt service is paid off on schedule • Annual market value growth from appreciation and redevelopment – 3.0% • General Fund levy increase in 2022 of 13% and 3% annually thereafter • HRA levy of $191,000 in 2022 and increasing 3% annually thereafter • Existing TIF Districts are decertified, with Highway 55 West District adding approximately $640,000 of tax capacity in 2033. • Current Police Station redeveloped in 2032 into apartments adding approximately $600,000 of tax capacity in 2032. • No local option sales tax (A 0.50% sales tax would generate approximately $2.85 million annually in 2021.) 3.0 Fiscal Impact Analysis To better understand the fiscal impact of financing the Facilities Plan, we are providing two scenarios. The first is a Baseline Scenario that includes the current City CIP for street improvements and the other assumptions listed above, but excludes the Facilities Plan. The second scenario includes the Facilities Plan and is titled BKV Option B. 3.1 Baseline Scenario As the table and graph below show, existing street debt increases over the next three years to $5.3 million in 2025 before falling to $2.1 million by 2029. The Brookview Community Center debt levy does not mature until 2036. The projected property tax levy and tax rate includes the operating levies and market value changes. Given the assumptions in the Baseline Scenario, the City’s property tax rate gradually declines as outstanding debt matures. 3.2 BKV Option B Scenario The debt levy for the Facilities Plan begins in 2025 with the financing of Fire Hall #2 but almost doubles in 2032 following the financing of the Public Works Building. Once all the facilities are financed, the debt levy is expected to reach $12.5 million. Despite the increase in the debt levy to finance the Facilities Plan, the City’s projected tax rate fluctuates between 55%-60% over the planning period. 4.0 Property Tax Impact The impact on property owners in the distant future is difficult to determine given the number of factors that could change during the planning period. For reference purposes, the property tax impact for various properties in the table below is based on the City’s 2021 taxable net tax capacity. Annual Levy Increase $1,000,000 $2,000,000 $3,000,000 $4,000,000 Taxable Net Tax Capacity $47,400,000 $47,400,000 $47,400,000 $47,400,000 Current Tax Rate 55%55%55%55% Added Tax Rate 2.1%4.2%6.3%8.4% New Tax Rate 57.1%59.2%61.3%63.4% Residential Market Value $350,000 $73 $145 $218 $291 $500,000 $105 $211 $316 $422 $750,000 $171 $343 $514 $686 $1,000,000 $237 $475 $712 $949 Commercial Market Value $1,000,000 $406 $812 $1,218 $1,624 Apartment Market Value $1,000,000 $264 $527 $791 $1,055 5.0 Statutory Authority and Debt Limits Minnesota state statutes authorizes municipalities to incur debt obligations and dictates the type of project, process and, in certain circumstances, a limit on the amount of debt a municipality can have outstanding. Minnesota Statutes 475.58, Subdivision 3 allows cities in Minnesota to issue general obligation bonds for public facilities without holding a referendum. However, the statute allows for a petition period whereby if five percent of the electors in the most recent general election sign a petition, the City must hold a referendum prior to issuing bonds. There are two relevant debt limits that apply to the Facilities Plan: 1. Statutory Debt Limit – The outstanding debt of a city cannot exceed three percent of the estimated market value of the City. However, not all outstanding debt is included in the calculation. The City’s street debt is not included but the facilities debt is included. Even given the most conservative assumptions for market value changes during the planning period, the City would remain significantly under the statutory debt limit. 2. General Obligation Capital Improvement Plan (M.S. 475.58, Subdivision 3) Debt Limit – The statute dictates that the maximum annual debt service for debt obligations issued under this authority cannot exceed 0.16% of the estimated market value in any year. Given the current assumptions used in the analysis, the City would remain under the limit. Golden Valley Council Work Session November 9, 2021 Agenda Item 2. Sign Code Update Prepared By Jason Zimmerman, Planning Manager Summary Staff has begun work on an overdue update to the Signs chapter of the City Code. The last significant update to this section of code was approved in 1993 and was not a major revision but an update to reorganize and clarify language. In 2008, the code was amended to address signage within the new I- 394 Mixed Use Zoning District. United States Supreme Court rulings in the intervening years, as well as advances in technology related to signage, now require the code to be significantly rewritten. Background While primarily being driven by legal and technological advances, there are a handful of other areas of the Signs chapter that require additional analysis. Staff has outlined six areas below. Content-Neutral Regulations In 2015, the Supreme Court’s decision in Reed v. Town of Gilbert changed significantly the way that signage can be regulated across the country. The ruling established that regulation of signage must be content-neutral. That is, the message displayed on a sign may not influence the way in which it is regulated. Cities may still dictate the time, place, and manner of signage, but if one must read the message on a sign in order to determine how it should be regulated, that is now content-based regulation and a violation of the First Amendment. Like many municipalities, Golden Valley has a Signs chapter that distinguishes between a wide variety of signs: construction signs, garage sale signs, real estate signs, etc. Each of these is regulated differently based on the message it displays (where it can be located, how long it can be up, how much area is allowed, etc.). Staff has begun to research the strategies used by other municipalities that have already made adjustments to their sign codes and will incorporate best practices into the planned revisions to ensure a content-neutral approach. Council Work Session Executive Summary City of Golden Valley November 9, 2021 2 New Technologies While the current sign code does include language to deal with electronic or illuminated signage, it is relatively basic, outdated, and does not anticipate new types of signage such as LED signs. Staff has struggled to regulate the handful of these that have recently been installed in the city, as there are no current limits on illumination or hours of use. In addition, existing language restricts changes in messaging to once every 24 hours. This standard is unnecessarily limiting and should be revised to reflect modern circumstances. Other local communities have made recent amendments to sign regulations to address LED signage – for example, Hopkins added a section to their code dealing with “dynamic signs” in 2020. Updated Mixed Use Zoning District Golden Valley uses zoning districts to organize and regulate signage. The replacement of the old I-394 Mixed Use Zoning District with the newer Mixed Use Zoning District means this section of the Signs chapter must be updated as well. Staff believes that some of the existing regulations are burdensome, for example requiring that an overall signage plan for each property be on file and approved by the City in association with any conditional use permit. Non-Commercial Speech In talking with the City Clerk, and through past experiences, there are occasional tensions between residents related to non-commercial (and often political) signage. The current code allows for signs containing non-commercial speech of any size to be posted for a certain number of days before and after an election, consistent with Minnesota statutes. These signs are usually political in nature and support (or oppose) a candidate or issue. However, there exist no provisions in the code to provide for non-commercial signage at other times of the year. Technically, in Golden Valley lawn signs such as “Black Lives Matter” or “We Support Our Police” are not allowed under the current code, raising potential free speech issues. An approach taken in other codes is to allow a reasonable amount of non- commercial signage year round, and to allow for additional signage during the election period. Billboards The City has been approached from time to time in recent years regarding any interest in allowing billboards to be installed on public property as a way to bring in revenue. Current restrictions that prohibit off-premises signage (signs that advertise for businesses or service on a lot other than where the sign is located) and strict sign area standards do not allow billboards to be erected. If the City Council is interested in pursuing billboards, staff would work to suggest code language that would allow this to happen. Other General Adjustments or Revisions Staff is reviewing other sections of the code for potential areas of improvement, including providing additional clarity around temporary signage and permitting, as well as addressing issues involving nonconforming signs. Staff will also review the amount of signage allowed for any given property (as determined by the underlying zoning designation) to confirm that updates or adjustments are not needed. In recent years, staff has connected with a handful of individuals interested in providing input on these topics and will reach out to them to help determine if changes need to be made. It is not the intention of staff to significantly deviate from the fairly strict limits the current code provides. Council Work Session Executive Summary City of Golden Valley November 9, 2021 3 Financial Or Budget Considerations Generally not applicable, though revisions to the Signs chapter that would allow billboards could provide a future revenue stream for the City. Supporting Documents • Sign Ordinances and the First Amendment, League of Minnesota Cities (7 pages) Sign Ordinances and the First Amendment Published: June 14, 2021 This content conveys general information. Do not use it as a substitute for legal advice. Any attorney general opinions cited are available from the Leagueʼs Research staff. First Amendment principles The First Amendment protects signs as speech, and as a result courts closely review attempts to regulate signs. In 2015, the U.S. Supreme Court decided a seminal case that changed how courts review the validity of sign ordinances (Reed v. Town of Gilbert (pdf ), 135 S. Ct. 2218 (2015)). Prior to this decision, courts generally presumed sign ordinances were valid and considered the intent behind the adoption of the ordinance. They would only strike down ordinances where they found evidence that the city “adopted (the sign regulation) to suppress speech with which the government disagreed.” This is commonly known as content-based speech. Since Reed, courts now presume that sign ordinances that restrict speech (either expressly or implicitly) are unconstitutional. As a result, courts look first to the effect of the sign ordinance — whether the ordinance regulates signs differently based on the content or message of the sign — before conducting their analysis of the constitutionality of the ordinance. Based on the courtʼs determination, the court will apply one of two standards of review to the challenged ordinance. One is a content-based standard, the other is a content-neutral standard. Content-based If the ordinance draws distinctions based on the message communicated by the sign, the court reviews these ordinances more harshly than if the ordinance regulates signs and their placement without regard to content. The Reed decision created a two-step analysis to determine if the ordinance restricts speech: 1. Does the ordinance language refer to the content or the message of the sign? 2. If not, then is there evidence showing the city adopted the regulation specifically because of disagreement (or agreement) with the message expressed by the sign? In Reed, the Town of Gilbertʼs sign code required permitting for signs, but then listed out categories or types of signs exempt from permitting, including “political signs,” “ideological signs,” and “temporary directional signs.” The ordinance in Reed also placed different physical restrictions on the separate types of signs. The Supreme Court found this ordinance to be content-based because the regulation “on its face” looked to the message on the proposed sign to determine how the city would regulate it. If a court finds the city expressly regulated, or intended to regulate a message or content, then the court applies a more rigorous level of review to those ordinances. This heightened level of review is called “strict scrutiny.” The court will only uphold the ordinance if: It furthers a compelling government interest, and It is narrowly tailored. Courts have found few governmental interests represent justifiable “compelling interests.” As a result, in practice, few, regulations survive strict scrutiny. Content-neutral For sign ordinances that do not regulate the message or content of signs (commonly called “content-neutral”), courts apply a lower standard of review to the reasonableness of regulations. Courts generally uphold regulations that further a significant government interest, as long as reasonable alternative channels for communication exist. As a result, courts usually uphold ordinances considered content-neutral. Courts generally uphold regulations that meet the criteria below. They are oen referred to as reasonable time, place, and manner restrictions. These ordinances: Do not reference the content of the sign. Are narrowly tailored to serve a significant governmental interest (rather than compelling interest). Leave open ample alternative channels for communication of the information. To help avoid challenges when adopting sign ordinances, cities should: Not regulate based on content. Not favor commercial speech over noncommercial speech. Further substantial government interests, such as traffic safety or aesthetics, without regulating more than necessary to accomplish their objectives. Leave ample alternative channels for communication, such as limiting the size of signs but still allowing signs. (Advantage Media, LLC v. City of Eden Prairie, 456 F.3d 793 (8th Cir. 2006); Hensel v. City of Little Falls, 992 F. Supp.2d 916 (D. Minn. 2014).) Commercial speech versus noncommercial speech Courts treat commercial speech differently than noncommercial speech and do not afford it the same level of protection. Commercial speech enjoys some First Amendment protection but not as much protection as noncommercial speech (Central Hudson Gas & Elec. v. Public Svc. Commʼn, 447 U.S. 557 (1980)). Courts have defined commercial speech as speech that proposes a commercial transaction. Understanding commercial speech versus noncommercial speech can get confusing. Commercial speech is: Initiated by a person or company that engages in commerce or is selling something. Targets commercial audiences or audiences that are actual or potential consumers. Communicates a message commercial in nature, such as advertisements. Noncommercial speech, on the other hand, includes messages that do not promote commercial products or services, such as a message that has ideological or political content. Drafting a sign ordinance Signs can pose distinct problems that are subject to a cityʼs police power. Examples include taking up space, obstructing views, distracting motorists, and displacing alternative uses for land. So, cities can regulate signs, but they must do so cautiously. The guidelines below may help cities dra ordinances to avoid the First Amendment concerns surrounding sign regulation. View a sample sign ordinance from the City of Hopkins Provisions to include Statement of purpose Include a section in the ordinance to explain the public purpose for the sign ordinance and how the city intends to apply the ordinance. It should state clearly that the city does not intend to have content-based restrictions or content-based enforcement. Cities find it a best practice to lay out the governmental interests spurring the regulations in this section. Substitution clause Adding a “message substitution clause” may avoid claims that an ordinance favors commercial signs over noncommercial messages. A substitution clause provides that for every commercial sign allowed, any noncommercial message could be legally substituted. Substitution clauses help protect against allegations of discrimination (based on content) because they always allow a noncommercial message on any sign. Ordinances may sometimes inadvertently define signs in terms of advertising. As a result, it may be interpreted as allowing only commercial messages. A substitution clause may correct these mistakes by providing a catch-all allowance of noncommercial messages notwithstanding other provisions. This is a sample substitution clause: “Signs containing noncommercial speech are permitted anywhere that advertising or business signs are permitted, subject to the same regulations applicable to such signs.” Severability clause A severability clause provides that if a court finds any provision of the ordinance invalid, the remainder of the ordinance stands on its own. This clause may prevent a flaw in one part of the ordinance from invalidating the entire ordinance. This is a sample severability clause: “If any section, subsection, sentence, clause, or phrase of this Sign Ordinance is for any reason held to be invalid, such decision shall not affect the validity of the remaining portions of this Sign Ordinance. The City Council hereby declares that it would have adopted the Sign Ordinance in each section, subsection, sentence, or phrase thereof, irrespective of the fact that any one or more sections, subsections, sentences, clauses, or phrases be declared invalid.” Election season preemption A cityʼs sign ordinance should acknowledge the election season preemption required by state law (Minn. Stat. § 211B.045). Under this law, municipalities must allow noncommercial signs of any size or number during election season, which runs from 46 days before the state general primary until 10 days aer the state general election. The statute does not define noncommercial sign. One Minnesota case does, however. It says a “noncommercial opinion sign” is one which “does not advertise products, goods, businesses, or services and which expresses an opinion or other point of view.” (Brayton v. City of New Brighton, 519 N.W.2d 243 (Minn. App. 1994), cert. denied, 514 U.S. 1036, (1995).) Courts consider campaign signs a subset of noncommercial opinion speech. Outside of “election season,” including during non-general election years, a cityʼs local sign ordinance governs. However, even if not election season, local sign ordinances should not have the effect of prohibiting opinion speech. Time, place, and manner regulations Best practices suggest cities should: Adopt sign ordinance regulations based on time, place, and manner concerns, not on content (City of Ladue v. Gilleo, 512 U.S. 43 (1994)). Refrain from favoring commercial speech over noncommercial speech (Brayton v. City of New Brighton, 519 N.W.2d 243 (Minn. App. 1994)). Examples of content-neutral restrictions include regulations based on size, brightness, zoning district, spacing, and movement. Provisions to avoid Unfettered discretion Cities should avoid draing ordinances that provide discretionary approval by the city staff (Hensel v. City of Little Falls, 992 F. Supp.2d 916 (D. Minn. 2014)). Ordinances that give staff discretion to grant or deny have the potential to favor some messages or messengers over others. This is true whether or not an abuse of that discretion occurred. Sign ordinances should have transparent and objective permit requirements. They should make the decision to grant or deny ministerial, as opposed to subjective, in nature. So, for example, cities should avoid provisions allowing staff discretion to deny permits, even if the application satisfies all specific ordinance requirements. Also avoid provisions that treat signs as conditional or special uses. Exemptions or favoritism Cities should avoid exempting certain groups or messages, such as church signs or official flags, from permit requirements in the ordinance. Courts construe these types of exemptions as content-based discrimination because a decision is made based on the text, or content, of the sign (Reed v. Town of Gilbert, 135 S. Ct. 2218 (2015)). Including specific exemptions in sign ordinances oen has the effect of “watering down” the proof that the regulation furthers a substantial government interest. For example, if an ordinance includes a prohibition on temporary signs but allows a long list of exemptions, it suggests the city is not really concerned about temporary signs. Over-dening signs Cities should avoid draing ordinances in ways in which noncommercial speech inadvertently gets treated less favorably than commercial speech. For example, some cities have run into trouble by defining a “sign” as “advertising.” A courtʼs analysis would be as follows: The city ordinance defines signs as advertising devices. The ordinance allows signs as defined. The ordinance, by its definition of signs as advertising, prohibits all other types of signs. This arguably prohibits noncommercial speech, violating the First Amendment. Include procedural protections Cities that require permitting should include certain procedural safeguards in their ordinance, such as: Specifying the time within which the city will grant or deny a permit, keeping in mind judicial preference for brevity in the response time (FW/PBS, Inc. v. City of Dallas, 493 U.S. 215 (1990)). A requirement that, if the city denies the permit, the applicant has access to prompt judicial review. Common sign ordinance issues Off-premise advertising (billboards) Off-premise advertising consists of commercial signs that advertise for a business located somewhere else than at the location where the sign is placed. Large, freestanding billboards create unique problems for land use planning and development precisely because their design intends for them to stand out from their surroundings. Courts have found a legitimate local governmental interest in controlling the size and location of billboards, but not in controlling the signʼs communicative aspects. Indeed, billboards can distract drivers, posing real danger to both motorists and nearby pedestrians and justifying regulation (Metromedia Inc. v. City of San Diego, 453 U.S. 490 (1981); Advantage Media, LLC v. City of Eden Prairie, 456 F.3d 793 (8th Cir. 2006)). In Minnesota, the court has upheld a sign ordinance that completely prohibited off-premise commercial advertising. But, it did so cautiously and only because the ordinance did not regulate noncommercial signs (City of Cottage Grove v. Ott, 395 N.W.2d 111 (Minn. App. 1986)). Because of the scrutiny applied in regulating speech, cities should use caution in adopting complete billboard prohibitions and work with their city attorneys. Flags Courts have recognized that the display of flags can constitute expressive conduct protected under the First Amendment as well (Texas v. Johnson, 491 U.S. 397 (1989);. Young v. City of Roseville, 78 F.Supp.2d 970 (D. Minn. 1999)). Cities should use caution if regulating flags to avoid favoring some types of flags (particularly the United States flag) over other flags. Use of a substitution clause helps in these instances: if one type of noncommercial flag would be acceptable, any noncommercial flag should be allowed. Yard signs, including political signs Courts have deemed yard signs constitutionally protected (City of Ladue v. Gilleo, 512 U.S. 43 (1994); Goward v. City of Minneapolis, 456 N.W.2d 460 (Minn. App. 2990)). Best practice suggests avoiding total bans on noncommercial lawn signs in residential areas, and using caution in adopting provisions that may favor some messages over others. For example, exemptions from sign regulations for real estate signs or construction project signs favor commercial speech over noncommercial speech. However, general limitations on the number and size of signs have withstood constitutional challenges since such limitations have nothing to do with a signʼs message, and they further governmental interests in protecting property values, preventing distractions for drivers, or avoiding clutter. Electronic signs Electronic signs present new challenges, especially with ever-changing technology capable of new levels of brightness, movement, flashing, and potential distraction. Most sign ordinances do not adequately address these issues and how they may impact traffic safety or aesthetics. Courts have upheld regulations on electronic or flashing signs, so long as the regulations Are not tied to the content of the signs. Serve a substantial governmental interest. Leave open ample alternative channels for communication. For example, courts have found that allowing non-electronic signs, or even operating the electronic sign in a non-flashing mode, represents ample alternatives (La Tour v. City of Fayetteville, Ark, 442 F.3d 1094 (8th Cir. 2006);. State v. Dahl, 676 N.W.2d 305 (Minn. App. 2004)). Signs adjacent to highways Minnesota law specifically regulates signs adjacent to highways. It says, in part, that it is unlawful to paint, print, place, or affix any object within the limits of any state highway, but provides for some specific signage that meets certain Department of Transportation criteria (Minn. Stat. 160.2715). Furthermore, Minnesotaʼs Outdoor Advertising Control Act prohibits advertising devices on private land without the consent of the owner or occupant; on public utility poles; on trees or shrubs; and by painting or drawing on rocks or natural features (Minn. Stat. Ch. 173). View Minnesota Department of Transportation information on billboard permits and guidance Seek fur ther assistance Because sign regulation is complex, cities should work with their attorney to dra and review sign ordinances. Your LMC Resource Jed Burkett Loss Control/Land Use Attorney (651) 281-1247 or (800) 925-1122 jburkett@lmc.org Golden Valley Council Work Session November 9, 2021 Agenda Item 3. Outdoor Service Areas Prepared By Jason Zimmerman, Planning Manager Summary Spurred by a request from Schuller’s Tavern to explore options to allow outdoor seating at 7345 Country Club Drive, staff has been exploring a new seasonal outdoor service use that could be applied throughout the City. The Planning Commission discussed this idea generally at its March 8 meeting and in more detail at its May 24 and June 28 meetings. Staff is now bringing a summary of those discussions to the City Council to determine if there is direction to proceed with a potential text amendment to the Zoning Chapter. Background Schuller’s has operated as a nonconforming use (a restaurant within a single-family zoning district) for many decades. In recent years, the owners have sought to find a way to utilize outdoor space for seating and dining. Due to the existing nonconforming status, this would be considered an illegal expansion of the restaurant use. In search of solutions, the idea was raised to explore the possibility of creating interim – or temporary – uses within the Zoning Chapter and potentially applying the concept to this property. Interim uses are those which are temporary in nature and are allowed to exist for a pre-determined period of time. They can be targeted to specific aspects of individual zoning districts. If workable, this idea could provide a focused solution to the current problem without exposing the wider neighborhood to potentially greater impacts. Staff also notes that COVID restrictions for restaurants and other retail/service uses in 2020 and 2021 resulted in the creation of Temporary Outdoor Service Area permits for use across the city. These permits – reviewed and approved by staff in Planning, Inspections, and Fire – allowed for outdoor seating/dining and retail sales using creative and temporary arrangements in parking lots and other areas. Council Work Session Executive Summary City of Golden Valley November 9, 2021 2 Outdoor Service Areas The concept of a new temporary outdoor service use would complement the City’s other current Temporary Uses found in Section 113-31 of the City Code: Mobile Food Vending, Seasonal Farm Produce Sales, and Temporary Retail Sales. It would need to be consistent with the criteria for interim uses outlined in Minnesota Statute 462.3597. There, an interim use is defined as “a temporary use of property until a particular date, until the occurrence of a particular event, or until zoning regulations no longer permit it.” A city may set conditions on interim uses, but may only grant permission for an interim use of property if: (1) the use conforms to the zoning regulations; (2) the date or event that will terminate the use can be identified with certainty; (3) permission of the use will not impose additional costs on the public if it is necessary for the public to take the property in the future; and (4) the user agrees to and conditions that the governing body deems appropriate for permission of the use. In order to comply with these criteria, the Zoning Chapter would need to be amended in two ways. First, the Outdoor Service Area use would need to be listed as a permitted use in each zoning district where it would be applied. Second, new text would need to be added to the Temporary Use section of code that detailed the process for application and approval. The most recent discussion with the Planning Commission on this topic was around the following questions and staff responses: Are outdoor service areas an option for businesses currently? Staff examined other businesses in Golden Valley that have outdoor seating. All of them take place entirely on private property and utilize permanent patio space constructed specifically for this purpose. Staff involvement with respect to the “approval” of these areas typical revolves around ensuring compliance with accessibility requirements, confirming minimum parking counts are not impacted, evaluating potential stormwater impacts due to increased impervious coverage, and updating liquor licensing and insurance information to reflect an expanded service area. Staff is not aware of any businesses that currently utilize outdoor space for retail sales, though if this were to be pursued it would likely not require any additional City approvals beyond the considerations of accessibility, parking, and potential stormwater impacts mentioned above. Would a public hearing be required for consideration of a temporary outdoor service area (with approval granted by the Planning Commission and/or the City Council)? There is some ambiguity on this point, but almost all of the cities that staff researched regarding interim uses do require notice and a public hearing. This is certainly the most conservative interpretation of State statute and likely the best approach in terms of transparency. In essence, an interim use follows the same procedure as consideration of a conditional use permit, but is approved for a fixed length of time rather than as an ongoing “right” that runs with the land. At least one adjacent community allows seasonal produce sales via an initial public hearing, but then allows staff to Council Work Session Executive Summary City of Golden Valley November 9, 2021 3 approve extensions administratively if the proposed additional operations are consistent with the original approval. What sorts of impacts would the City want to evaluate and require mitigation for as part of conditions of approval? If temporary outdoor service uses are to be approved via a public hearing, specific regulations that attempt to mitigate impacts would not be spelled out in the zoning text, but would be developed on a case by case basis as part of the proposal evaluation by staff, the Planning Commission, and/or the City Council. In general, staff would examine potential impacts to parking, hours of operation, lighting, noise, visual screening, etc. It is likely that the City Council would also be asked to make findings that the proposed use was consistent with the Comprehensive Plan and not injurious to the surrounding neighborhood or otherwise impact the general public health, welfare, or safety. What zoning districts would be involved? If the concept were to move forward, staff would recommended allowing Outdoor Service Areas in all residential zoning districts, as well as in Commercial and Mixed Use zoning districts. This would allow all restaurants as well as other retail businesses the opportunity to potentially take advantage of this option. Conclusion Given the ability for most businesses to install outdoor seating or to conduct outdoor sales without going through an extensive approval process, staff believes it is unlikely the Outdoor Service Area option would be pursued outside of the well-known situation at Schuller’s. While the potential regulatory route being crafted would offer a solution to the challenges they face without the more complicated rezoning option, it is clear that the changes to the zoning text being considered are for the benefit of one location only. This addresses the immediate obstacle, but in general does not constitute good planning practice. Following the research conducted by staff and after thoughtful discussion, the Planning Commission had a generally negative reaction to this concept (see attached meeting minutes). If staff were to be directed to move forward with drafting a potential zoning text amendment, details around an application process, the basis for evaluating a proposal, and the duration of the permit as well as the process for extending the use would be developed and brought forward to the Planning Commission at a future public hearing. Financial Or Budget Considerations None. Supporting Documents • Excerpt from the Minutes of the Planning Commission Meeting of June 28, 2021 (1 page) Excerpts from the Minutes of the Planning Commission Meeting of June 28, 2021 Commissioner Baker asked for clarification on if City Council directly requested Planning Commission look into this. Zimmerman clarified that staff looked into other cities and their interim use process but there wasn’t direct input from Council or Schuller’s. Commissioner Segelbaum asked about the realities of other businesses or even homeowners wanting to set up a sale, utilizing this use. Zimmerman added that an outdoor service area would not include a home occupation; this would only be allowed for a retail or restaurant in R-1 or R-2. Commissioner Johnson asked about a waiver from not being allowed to expand at Schuller’s. Zimmerman responded that Schuller’s is interested in a patio space and the current building doesn’t meet current zoning. If there were an expansion considered, the owners would need 3-4 variances approved by BZA before going that route. Expanding the use goes back to state statute, a variance can’t be granted for a specific use but a permitted temporary use in a specific district would be allowed. Staff expanded on interim use intent, term length, and renewal process. The discussion moved on to discuss a defined space and how that applies to Schuller’s. The conversation continued on to logistics of renewals and potential conditions. Commissioner Blum thanked staff for their transparency while working through this process. Blum added that small cities are more likely to create functional policy that will only impact one or two small businesses-merely by the function of size. However, is this policy something the City wants to see repeated with another potential non-conforming use in the future. Guiding his own thoughts, Blum finds it’s reasonable to air on the side of people instead of the business, when there’s an issue of compatibility with folks living in the area. Commissioner Baker stated that he will oppose it as it feels like this is creating a loophole for one business. Commissioner Brookins echoed Commissioner Baker’s statements. Chair Pockl stated that if this interim use was approved, there would continue to be hurdles to reach approval. She added that this doesn’t seem to be consistent with the intent of state statute and the zoning code. Commissioner Segelbaum echoed these statements and added he recalls the neighbors didn’t want to change the land use to Commercial. Creating this use doesn’t seem consistent with what other municipalities have done. Commissioner Johnson asked about neighborhood support and that lead to a discussion with staff about direct neighbors versus close neighbors that would use the space. Johnson followed up with examples of other situations where it felt the Planning Commission was put in a position to mediate. He added that he wants businesses to be successful but feels that the group should focus on the current regulations, and stated his opposition. Zimmerman stated that he’ll bring the discussion to City Council and let the Planning Commission know what the direction and next steps are. Golden Valley Council Work Session November 9, 2021 Agenda Item 4. Accessory Dwelling Unit Check-in Prepared By Myles Campbell, Planner Summary Over the summer, staff and the Planning Commission began discussing and researching zoning ordinance language relating to Accessory Dwelling Units (ADUs). Granny flats, mother-in-law apartments, carriage houses; ADUs is the standardized terminology in Planning now to refer to secondary dwelling units that are typically seen as an addition to a single-family property. They typically are limited in terms of floor area to avoid creating a duplex, but are more substantial than what the zoning code for R-1 zoned properties allows today. ADUs historically were more informally established, but were limited by wide-spread adoption of single-family zoning regulations in many American communities. Today there is a resurgence of interest in these forms of housing, as people look to house aging parents, adult children, or simply to help subsidize the cost of owning and maintaining their home by renting the ADU. ADU’s were identified previously by the City Council as an area they were interested in the Planning Commission researching. Thus far, that review has covered the pros and cons of ADUs, the typical requirements and restrictions placed on these uses, and how these uses have been handled in similar communities throughout the Twin Cities Metro Region. The Planning Commission is eager to begin debating and digging into specific zoning and development restrictions such as setbacks, floor area, and utility connections; but first would like some direction from the City Council as to what they would like to see come from this new zoning ordinance. Allowing ADUs in the City would not be an insignificant change to the zoning code and use of single-family properties, regardless of how many households actually take advantage of those changes in the first few years following adoption. Planning Commission Background Rather than going into great detail here on ADUs, staff has included two documents produced by the Family Housing Fund. The first is an overview document of ADUs, common practices, and design considerations. The second is a table that provides common regulations and stipulations that other communities in Minnesota have placed on ADUs. Both documents were also shared with the Planning Commission as a way to introduce the topic and to start thinking about how a local policy might take form. Council Work Session Executive Summary City of Golden Valley November 9, 2021 2 The Planning Commission has thus far had three discussions on the topic. The first meeting served as an opportunity to discuss accessory dwelling units broadly and to solicit questions and concerns from Commissioners. Commissioners had questions about the impacts of ADUs on other properties, whether they could be considered affordable housing, and the cost of construction for an ADU. Responding to these initial questions was one of the main focuses of the second meeting, which also included some geographic analysis of residential lots in Golden Valley to get a rough idea of eligibility. The maps from this analysis are provided with this memo; they highlight lots greater than 10,000; 12,000; and 15,000 sq. ft. in lot area. Any of these three could be a cut off requirement for adding an ADU, and so they give an idea of where and how widespread these units may become. The third and final discussion focused on the types of regulations and restrictions that are commonly placed on these structures by other communities. This discussion remained mostly at the policy level, as staff and Commissioners both agreed they would appreciate the weighing in of the City Council on this topic before diving into specific details of side setbacks, internal vs. detached, and additional requirements. Generally speaking, the Planning Commission was supportive of exploring ADUs. They did have some hesitations about whether the new code would lead to a quick wave of such units, but also were interested in seeing how they could be implemented to provide new types of housing in the city. Questions for Council Staff has included here both the broader question of should the Planning Commission take up work on a formal ADU ordinance, and some of the questions Commissioners had for the Council. Should the City look to adopt an ADU Ordinance? While previously identified by the housing plan produced by Cathy Bennett in 2020, and as an implementation item in the 2040 Comprehensive Plan, staff did want to confirm that Council is still interested in potentially adopting code language that would allow for Accessory Dwelling Units in some form or fashion in the Single Family Residential (R-1) Zoning District. While the district currently allows both rental of single-family homes, and rental of boarding rooms in said homes, the introduction of ADUs as an allowed use would be a major change for the district. Staff believes this change will be on the whole beneficial: more opportunity to age in place, ADU rentals subsidizing the owners housing costs, and increasing the overall supply of housing. It also would in all likelihood mean a greater density of population in single-family neighborhoods, added construction activity, and that these will likely not be “affordable” housing units due to the cost of construction. What is the right balance between allowances and restrictions? This question by the Planning Commission will play a large role in developing the ordinance. On the one hand, they would like to make it simple for a property owner to add an ADU to their property, similar to as if they were remodeling a kitchen or garage. While an ADU would likely have more review associated than a simple remodel, the point of the ordinance should not be to make it difficult or convoluted to apply for and build an ADU. On the other hand, ADUs are a significant change for a district that by and large limits a single property to a single family. Commissioners were concerned about the potential for an ordinance to be too permissive in its regulations, resulting in impacts on surrounding property owners who have invested their own time and money into their homes. While some members of the community are interested in Council Work Session Executive Summary City of Golden Valley November 9, 2021 3 ADUs, it’s fair to assume that others will see them as an added nuisance. Commissioners discussed if it made sense to have a limit or cap in effect for the first few years after adoption, to somewhat control the rate of development. However, some pointed out that this was at odds with their desire to make the ordinance open and accessible. The Planning Commission would like to hear Council’s thoughts on the subject. How much should the ordinance be designed for the ADU user versus the neighbor of a potential ADU? Both groups must be reflected in the final product, but providing some priority may help in decision-making. Should the Planning Commission consider detached ADUs? In their early discussions, Commissioners were very supportive of internal and attached ADUs – that is those ADUs that are part of the principal home structure and may just involve conversion of living space, or an addition to the home itself. Commissioners generally saw these as less disruptive to their surrounding neighbors and local area. A third category of ADU are detached ADUs, which are freestanding structures, typically restricted to the side and rear yard by communities that allow them. Often similar to Tiny Houses, Commissioners were not fully certain how to approach these types of ADU. As a separate structure, detached ADUs could be see as having more impacts on neighbors, and would also have their own ordinance requirements. For example, the City currently limits the square footage of garages and sheds allowed on a lot to avoid excess hard cover and lots feeling cluttered with outbuildings. Would a detached ADU share this restriction with detached garages, or would a separate are limit be placed on them? While potentially a more significant departure from single-family style residential neighborhoods, and with their own set of planning challenges, detached ADUs are still allowed in approximately half the communities identified by Family Housing Fund with ADU policies. If these are something the Council would like considered, staff and Planning Commission can review their applicability to Golden Valley. If the Council has no strong preference either way, Planning Commission will review and provide its best recommendation. What sort of feedback needed from the Community? While staff does hear from residents on a fairly regular basis asking about secondary units and additions to homes for aging parents, this is mostly anecdotal community feedback. If staff were to more broadly solicit opinions from the community, what areas would the Council like to hear about: • Whether residents would consider building an ADU? • What restrictions are the most important to residents? • General support for or dissonance with the concept? Financial Or Budget Considerations Generally not applicable Supporting Documents • Family Housing Fund ADU Guidebook (25 pages) • Family Housing Fund ADU Policy Matrix (3 pages) • Geospatial analysis of lot sizes (4 pages) Home + home Twin Cities ADU Guidebook ADU: ACCESSORY DWELLING UNIT FOR HOMEOWNERS 1 Contents INTRODUCTION ..........................................................................2 How to Use this Guidebook ..................................................................4 What is an Accessory Dwelling Unit (ADU)? ...........................................4 Frequently Asked Questions .................................................................9 GET INSPIRED: WHY BUILD AN ADU? ...................................10 ADU Stories .....................................................................................12 Case Studies .....................................................................................14 GET EDUCATED: HOW TO BUILD AN ADU .........................24 1. Research .......................................................................................28 2. Design Ideas ..................................................................................32 3. Team Selection ..............................................................................34 4. Finances .......................................................................................36 5. Permits .........................................................................................38 6. Construction .................................................................................40 7. Move-In ........................................................................................42 REFERENCES .................................................................................44 Additional Resources .........................................................................44 Twin Cities Planning Departments Contact Information ........................45 Acknowledgements ...........................................................................46 PHOTO CREDIT Jill Greer photography 2 3 Introduction In this section you will… • Learn how to use this guidebook. • Learn what an ADU is. • Discover the different types of ADUs. • Find answers to common questions. Home + home: Are you interested in building an Accessory Dwelling Unit (ADU) and creating another home in your little corner of the world? ADUs have existed historically throughout the Twin Cities, providing important space to rent out for extra income or to meet other household needs. As the metropolitan region grows and changes, homeowners and city planners alike are rediscovering the benefits of ADUs and the role they play in meeting our housing needs. Still, a homeowner thinking about building an ADU can be uncertain about where to start. This guidebook can help make your ADU dreams a reality. 4 5 How to Use this Guidebook This guidebook is organized in two sections: A. GET INSPIRED. Learn about the benefits of ADUs and see the ADU experiences of real Twin Cities families. B. HOW TO BUILD AN ADU. Learn the basics of ADU development, from start to finish. This guidebook is a resource to help you get started, but it cannot replace the knowledge and experience of local designers, builders and planners. The size and shape of your property, the rules of the city you live in, your budget and your own design needs and preferences will make your ADU-building experience unique. What is an Accessory Dwelling Unit? An ADU is a self-contained residential unit with its own living room, kitchen and bathroom. ADUs are known by many names: carriage or coach houses, accessory apartments, garden apartments, mother-in-law suites, granny flats, backyard cottages and secondary dwelling units. Whatever it is called, an ADU is smaller than the primary or main house on the same lot. Carriage Houses Backyard Cottages Accessory Apartments Granny Flats Garden Apartments Secondary Dwelling Units Mother-in-law suites An ADU is a self-contained residential unit with its own living room, kitchen and bathroom. ADUs ARE ALSO KNOWN AS: PHOTO CREDIT Jill Greer photography 6 7 A historic form of housing Although there is a recent resurgence of interest in ADUs, they are actually a historic form of housing that was common in the Twin Cities before World War II. For example, in the Frogtown neighborhood of St. Paul, new immigrants would commonly build an alley house in the back of their lot while saving to build a larger home in the front (McClure 2018). Many carriage houses (living quarters located above garages) were built alongside larger homes and are still used for housing today. Some modest single-family homes included attic or basement apartments that helped to house larger city populations in the early- and mid-20th century. How are ADUs different from duplexes? While they share some similarities, ADUs are generally differentiated from duplexes (two-family houses) in their size, construction timing and use. City building and zoning laws often treat the two housing forms differently. • An ADU is smaller than the main home. Units in duplexes are usually about the same size. • Duplexes are usually in the same building, but ADUs can be located within, attached to or detached from the main home. • Duplexes are usually built as one construction process; ADUs are often built after the main home is completed. • ADUs are designed as flexible housing and can generate rental income, house multigenerational families or serve other uses. Could a tiny house be an ADU? Most tiny houses on the market are set on trailers and have wheels. These are categorized as Recreational Vehicles (RVs) and are usually not allowed as a permanent living space. However, if a tiny house meets residential building standards, is placed on a permanent foundation and is connected to utilities, it could be considered an ADU. Ask your city’s building department to learn more. Is the usable space above my garage, in my basement, or in my attic an ADU? If the space has a living area, a kitchen, a bathroom and its own entrance, it may be an ADU. ADUs must also meet certain residential building code requirements, so check with your local planning office. See also Legalizing an Existing ADU on page 38. Is a granny pod an ADU? In 2016, the Minnesota Legislature approved a definition of “Temporary Family Health Care Dwellings,” the backyard dwellings sometimes called “granny pods.” The statute defines them as mobile residential dwellings or providing care for a mentally or physically impaired family member. Most Minnesota cities do not allow these temporary care dwellings, and they are treated differently from ADUs in local code (Bekker 2016). 1 Jane McClure, “Alley House,” Saint Paul Historical, accessed August 9, 2018 Coach house at Minnesota Governor’s Residence. PHOTO CREDIT Minnesota Department of Administration Types of ADUs There are three basic types of ADUs: Internal Attached Detached ADUs are located within the structure of the main house, for example, a converted basement or attic. These are generally the least expensive to build. ADUs share one or more walls with the primary house. These ADUs are commonly constructed as additions or conversions of attached garages. ADUs are the most visible type of ADU. They are typically the most expensive to build and include freestanding backyard structures, detached garage conversions, same-level additions to a detached garage or above-garage units. 8 9 What type of ADU works best for you? As you go through this guidebook, return to this question and consider which type of ADU best fits your goals and budget. Local regulations may limit which type you can build. FREQUENTLY ASKED QUESTIONS Am I allowed to build an ADU? How do I legalize an existing ADU? How do I pay for it? How long does it take? How do I get started? How do I find an architect and contractor? How do I become a landlord? Where can I learn more? 28 38 36 26 28 34 42 44 10 11 GET INSPIRED: In this section you will… • Learn about the benefits of ADUs. • Read the stories of other local homeowners who have built them. Benefits of ADUs Building an ADU offers many benefits for you and your neighborhood. ADUs are flexible and can serve many purposes over time. While every home’s story is unique, here a few examples. ADU Stories PHOTO CREDIT Jill Greer photography (both pages) ADU Benefits EXPANDING HOUSING OPTIONS An ADU can have a positive effect on your community. ADUs provide more housing options in neighborhoods that are already built out, which can help relieve the growing demand for housing in a way that does not alter the character of existing neighborhoods. HOUSING FRIENDS, FAMILY AND CAREGIVERS ADUs can provide important independent living space for friends, family members and caregivers. Many homeowners are motivated to build their ADU to provide a combination of in-home care and independent living for a family member. The cost of ADU construction and maintenance may be comparable or less expensive than some assisted- living or skilled-nursing facilities, with the added benefit of keeping a loved one close by. AGING IN PLACE AND DOWNSIZING Some people move into the ADU while their adult children move into the main house, or they rent out the main house for extra revenue in retirement. EARNINGINCOME Depending on the circumstances, rental income may make it possible to cover the cost of monthly loan payments and, over a number of years, pay back the initial cost of the ADU’s construction. Even when financial returns are not a primary motivation, earning rental income might make it possible to work part-time, stay home with a child or save for a major expense. REDUCING ENVIRONMENTAL IMPACTS ADUs tend to be environmentally-friendly simply because they are smaller and use less energy for heating, cooling and light (Stephan and Crawford 2016). Energy-saving designs can be incorporated into an ADU, further lowering its environmental impact. ADUs may help reduce transportation-related environmental impacts when they are located near employment centers and established public transit routes. A 2014 study found that ADU residents in Portland were less likely than other residents to own cars (Brown and Palmeri 2014). 12 13 14 15 The old garage in Megan and Rob’s backyard had seen better days. With no need for enclosed parking, they were hoping to put it to better use. Inspired by the tiny-house movement, Megan and Rob started looking into the possibility of building a detached backyard ADU on their roughly 5,000-square-foot lot. Not only could an ADU replace their old garage, but it could add a needed home in the popular Kingfield neighborhood. An ADU could generate rental income or give the homeowners the option to downsize. Megan and Rob had many questions at the beginning, including what information they would need to get started. After doing some research online and sketching out a few layout ideas for the ADU, Megan and Rob scheduled a pre-application meeting with Minneapolis city planning staff. This free service allows city residents to ask planning staff questions and learn about applicable regulations and the permitting process. After going over the general permitting process, planning staff members answered some of Megan and Rob’s questions about their specific property, helping them think through how height limits and parking requirements would apply to their project. With this initial information in hand, Megan and Rob are starting to save for their project and preparing to take the next steps toward their ADU. 20' 40' 11' 11'14'DECK HOUSE STREET DRIVEWAY1,456 sq ft 138'8'8" 4' ADU TYPE Detached STATUS Early planning SIZE TBD BEDROOMS TBD BUDGET TBD CASE STUDY Not only could an ADU replace their old garage, but it could add a needed home in the popular Kingfield neighborhood. An ADU could generate rental income or give the homeowners the option to downsize. ADU Under Consideration Getting Started The case studies that follow profile real Twin Cities residents at different points along their ADU journeys—from initial planning and visioning, to construction, to completion. 16 17 TYPE Interior, basement STATUS Under construction SIZE 702 sq. ft. BEDROOMS 2 BUDGET $80,000 CASE STUDY DIY ADU The case studies that follow profile real Twin Cities residents at different points along their ADU journeys—from initial planning and visioning, to construction, to completion. Mike started his ADU journey when his father, Dallas, decided to downsize and sell his home in St. Paul. Mike researched multigenerational living options and decided to build an internal ADU by converting the basement in his south Minneapolis home into an apartment for Dallas. Mike took on the work of being the designer and general contractor for the ADU. He used software to model the design and then drafted plans to submit for the city permit application. Mike’s design features a spacious two-bedroom unit with lots of natural light. This arrangement will allow Mike and Dallas to stay close while maintaining their own personal space. After a few rounds of revisions, Mike’s plans were approved and, with building permit in hand, he quickly got started on construction. Mike hired subcontractors to help with specialized work but did most of the project himself. Dallas and Mike’s brother have pitched in, too. While self-managing the project has extended the timeline, it has also saved money, and the new ADU is starting to take shape. Once completed, their DIY ADU will serve as a place for Mike and Dallas to call home for years to come. Dallas says, “We’ve always been close, but working on this project has brought us even closer together.” BR BA BRLR/KIT “ We’ve always been close, but working on this project has brought us even closer together.” 18 19 TYPE Detached, above garage STATUS Complete SIZE 528 sq. ft. BEDROOMS Studio BUDGET $225,000 BUILDER White Crane Construction CASE STUDY Curious about the difference between prefabricated and traditional construction? See page 32. A Dream to Downsize The case studies that follow profile real Twin Cities residents at different points along their ADU journeys—from initial planning and visioning, to construction, to completion. Cate and Jason loved their neighborhood near Minnehaha Creek in Minneapolis but yearned to downsize when their kids left for college. They initially planned to sell their home and move, but then they came up with a better solution: building a new unit in the backyard that they could live in while renting out their main house. After looking into various options, including prefabricated modular designs, Cate and Jason decided to pursue a traditional site-built ADU above a two-car garage. Cate and Jason hired a design-build firm that took them through the process from initial design to city permitting and construction. They learned that they would have to tear down their existing garage and build a new structure with frost footings in order to meet the building code. Still, they were able to cut costs by reusing their old garage door and performing some work themselves, such as ordering the appliances and painting the interior. The completed ADU, sitting in a shaded backyard, features an open layout with new appliances and an in-unit washer and dryer. Cate and Jason plan to rent it for a few years until they are ready to move in and fulfill their dream of downsizing. BA STUDIO PHOTO CREDIT Jill Greer photography (all photos on this spread) 20 21 TYPE Attached STATUS Complete SIZE 540 sq. ft. BEDROOMS 1 BUDGET $40,000 part of total development cost CASE STUDY Thanks to the community land trust model, all of these homes will remain affordable for future generations of new homebuyers. ADU in the Family The case studies that follow profile real Twin Cities residents at different points along their ADU journeys—from initial planning and visioning, to construction, to completion. Fue Lee’s family had always envisioned multigenerational living when they were on the hunt for their first house. Working with the City of Lakes Community Land Trust (CLCLT), the Lee family had the opportunity to buy one of the very first homes in Minneapolis developed with an attached ADU. The brand new home they purchased in the Lind- Bohanon neighborhood has the perfect layout for their close-knit family. Fue and two of his adult siblings live in the main house. His parents have their own private space in the first-floor ADU. The house is designed for flexibility. While the Lees have no plans to move, any family that buys the house in the future could choose to rent out the attached unit for extra income. Responding to demand from its members, the nonprofit CLCLT has recently built two more multigenerational homes with ADUs. Thanks to the community land trust model, all of these homes will remain affordable for future generations of new homebuyers. SECOND FLOOR PLAN FIRST FLOOR PLAN 1 LIVING 2 KITCHEN 3 DINING 4 HALL 5 BEDROOM 6 ACCESSORY DWELLING UNIT 7 PORCH 8 LAUNDRY/ MUDROOM 5 4 5 5 7 1 4 2 3 8 5 6 7 CREDIT Marnie Peichel Architecture and Design, LLC 22 23 TYPE Detached, above garage STATUS Complete SIZE 624 sq. ft. BEDROOMS 1 BUDGET $125,000 CASE STUDY Flexible for the Future The case studies that follow profile real Twin Cities residents at different points along their ADU journeys—from initial planning and visioning, to construction, to completion. When Eric & Chrissi purchased their home near a Green Line station in the Hamline-Midway neighborhood of St. Paul, they knew from the start that the house’s detached garage didn’t meet their needs. As they made plans to replace it, they heard from a friend about a new ordinance that gave them the option to build an ADU. Eric and Chrissi started to envision all the ways an ADU could benefit them in the future and met with a designer to develop a plan for a one- bedroom unit above a new two-car garage. Eric and Chrissi liked the idea of having a flexible space to support more community-oriented living while still maintaining the privacy of their main home. Their ADU could be a place to host friends and family, and it could potentially generate rental revenue that would make it possible for one of them to stay home with a future child. With experience in home remodeling, Eric decided to become the general contractor for the project. He worked full-time for six to seven months to complete the construction of the ADU, hiring subcontractors for electrical and plumbing work. Chrissi led the interior design work, and friends and family members also helped. Eric is pleased with the solution they arrived at for connecting water and sewer lines from the ADU to the main lines in the street. Instead of the traditional method of digging an open trench, the lines were installed through an underground, lateral drilling process that preserved more of their existing landscaping and was about one-third less expensive than trenching. Eric and Chrissi also designed the ADU for energy efficiency and for compatibility with photovoltaic panels, so that it can run mostly on solar energy. Now that the ADU is complete, Eric and Chrissi’s friends and family tell them it does not look at all like what they imagined as a “garage apartment”—the unit is spacious and feels like a home. Eric and Chrissi rent their bright, modern ADU at an affordable price to a student at a nearby university. BA BR DECK LR/KIT Eric and Chrissi’s friends and family tell them it does not look at all like what they imagined as a “garage apartment”—the unit is spacious and feels like a home. 24 25 GET EDUCATED: In this section you will… • Learn the basics of ADU development, from start to finish.Inspired? The following pages will walk you through the basics of getting started and what to expect as you explore an ADU project. 1. Research ..........................................................p28 2. Design ideas ....................................................p32 3. Team selection ................................................p34 4. Finances ..........................................................p36 5. Permits ............................................................p38 6. Construction ...................................................p40 7. Move-in ...........................................................p42 How to Build an ADU 26 27 TEAM SELECTION •Learn about types of development teams. •Find out what information to prepare when contacting a company. •Review suggested considerations for hiring a company and signing a contract. FINANCES •Learn about resources to help you make an informed decision. •Learn about potential financing options. DESIGN IDEAS •Consider your goals and design options together. •Work on your own or with a designer to sketch out your ADU. RESEARCH •Clarify your goals. •Determine if an ADU is allowed on your property. PERMITS •Review the steps involved in a typical permitting process. •Learn why it’s important to permit an existing ADU. CONSTRUCTION •Learn what to expect during construction. •Understand your responsibilities. MOVE IN! •Find resources on how to be a landlord. 1 2 3 4 5 6 7 Process Overview From Point A to Point ADU Print out the included worksheets along the way, and start putting pencil to paper. PHOTO CREDIT iStock by Getty Images There are printable worksheets for this step. There are printable worksheets for this step. 2928 RESEARCH An ADU will become part of the story you tell about your life. But what role will it play? Will it help bring your family closer together? Provide a financial cushion? Both? Determine if an ADU is allowed on your property One of the first things you’ll need to do is determine whether the ADU you envision is allowed on your property. There are three ways you can do this: In this step you will… • Clarify your goals. • Determine if an ADU is allowed on your property. What story will your ADU tell? TIP Note that information you receive from your city at this stage is preliminary. Some properties have unique circumstances that can affect the outcome of decisions, but these may not be revealed without the thorough process that a formal application provides. The city staffer assigned to your application will work with you to provide solutions to issues that arise. TIP You can find a list of cities in the region that allow ADUs, along with their contact information, at the end of this guidebook. DISCLAIMER Laws and processes are subject to change, and vary between cities, so be sure to consult with your local planners or other knowledgeable professionals as you move forward. 1. Enlist your designer If you already have a designer or contractor in mind, enlist their help. 2. Check online Many cities and counties have web links to city codes, zoning maps and property information on their websites. 3. Ask a city planner This is the most direct way to get up-to-date information about what will be allowed on your property. You can get help from most cities by calling or visiting the planning department. If your city does not have a planning department, ask a representative to connect you to a staff member who is knowledgeable about land use, zoning or building permits. Tell the staff member that you are interested in building an ADU and want to know if it is allowed on your property. Also ask about the types of ADUs allowed and how big and tall they can be. The answers will affect your ADU design decisions. Print this page and use this worksheet to write down your ideas, short- and long-term goals, and questions. Don’t worry if you are unsure of some information about your property. You’ll be able to fill it in throughout. STEP ONE 3130 In this step you will… • Clarify your goals. • Determine if an ADU is allowed on your property. My Property Information ADDRESS: PROPERTY IDENTIFICATION (PID) NUMBER: ZONING: BUILDING TYPE: single-family, duplex, other YEAR BUILT: LOT SIZE: LOT COVERAGE: GROSS FLOOR AREA: UNIQUE CHARACTERISTICS, IF ANY, OF YOUR LOT: LOT COVERAGE CALCULATION RESEARCHSTEP ONE TIP Take photos of the exterior of the house and of the site where you want to locate your ADU. Suggested Questions Is an ADU permitted on my property? What types of ADUs are allowed? (attached, detached, internal) Where can it be located? (required setbacks) A setback, or required yard, is an amount of space required between two structures, or between a structure and a property line or utility line. ADU design constraints: How big can it be? How small can it be? How tall can it be? What is the required ceiling height? Where can the entrance be located? If an internal ADU, are the existing stairs and windows adequate? Is owner-occupancy required? If so, how is it defined and enforced? Owner-occupancy: Many cities in the region require you to live in either the main house or the ADU and will require filing a covenant with the county recorder. Some, but not all, cities further define owner-occupancy to say how many days out of the year the owner must reside there. If you think you might live somewhere else temporarily, be sure to ask about these requirements and any associated fees. What will be the address of the ADU? Some cities require the ADU to have a separate address while others forbid it. Be sure to understand your city’s rules. What are the parking requirements? What are the requirements for water and sewer hook-ups? What fees should I expect? How much work am I permitted to do and what is required to be done by a licensed subcontractor? How does the permitting process for ADUs work? (see also Permitting on page 38) 5,000 sq. ft. x 45% = 2,250 sq. ft. - 1,500 sq. ft. = 750 sq. ft. POTENTIAL FOOTPRINT FOR ADU (if not elsewise restricted) LOT SIZE MAX. ALLOWED LOT COVERAGE % MAX. BUILDING FOOTPRINT ALLOWED EXISTING BUILDING FOOTPRINT Print these pages and use the worksheets to determine what’s allowed on your property. 3332 In this step you will… • Consider your goals and design options together. • Work on your own or with a designer to sketch out your ADU. Considerations While you may already have a vision of what your ADU will look like, it is important to spend some time thinking about function. How will the design of the ADU meet your short-term and long-term objectives? DESIGN IDEASSTEP TWO Print this page and sketch your ADU floor and site plans. TIP Chances are you’ve already come across many inspiring designs either online or perhaps in your own neighborhood. Use an old-fashioned scrapbook or an online service to help organize these inspirations so you can refer to them later or use them to convey to your designer what resonates with you. Bedrooms The number of bedrooms should reflect who you think will spend time there. Studios are attractive for their open and flexible space, but designated bedrooms offer more privacy. Units with designated bedrooms usually rent at a higher price, but they could be more expensive to build. Traditional or prefabricated construction In addition to the many design choices you have for your ADU, you also can choose whether to build your ADU using traditional “stick-built,” on-site construction or some form of prefabricated assembly. Factory-built, modular, panelized and other newer construction technologies are increasingly available, and in some situations can reduce your costs or the time it takes to build. You might also be surprised by the high quality. If you are interested in a prefabricated method, consider how the building will be delivered to your lot, the delivery costs and what site-preparation work will be required. Access Think about how ADU residents will get to their front door. At a minimum, you’ll need to provide them a stable, well-lit path. Your city may have regulations that specify where you can place the ADU entrance. Environmental You can reduce environmental impacts and save on energy costs through the layout and materials that you choose for your ADU. For instance, you can use recycled materials, insulate well and place windows in locations that will take advantage of the sun’s location throughout the year. You can also incorporate solar panels so that the ADU can generate its own energy. Work with your development team to understand what’s possible. Universal design & accessibility A home built with universal design means that anyone, regardless of age or ability, can live there comfortably. In addition to ensuring that there is easy access to the unit without stairs, universal design features include pull-out lower drawers, level-entry showers, lower countertops and raised electrical outlets. Building to universal design standards is a smart way to ensure the ADU will meet your needs over time. Finished materials While you don’t need to make decisions yet, keep in mind that the materials you use will affect your budget. A designer can provide cost estimates. You might also be able to save money by reusing some materials. Be aware that some selections, like doors and appliances, might affect the design of the ADU. 3534 In this step you will… • Learn about types of development teams. • Find out what information to prepare when contacting a company. • Review suggested considerations for hiring a company and signing a contract. Types of Companies and Their Roles There are a number of ways homeowners can get the help they need to design and build their ADU. Most homeowners choose one of three types of development teams: ARCHITECT + CONTRACTOR/BUILDER: The homeowner hires an architect to complete the design of the ADU and then hires a contractor/builder to construct it. DESIGN-BUILD FIRM: The homeowner hires a design-build firm that will, as the name implies, design and build the ADU. DIY: The homeowner acts as the general contractor, coordinating the overall project and hiring subcontractors for specialized work. Remember, while being your own designer and/ or general contractor can save money, it is an involved process and will likely add to your overall timeline, especially if you cannot devote yourself to it full time. Consider, too, that professionals often bring problem-solving skills that save time and money. A homeowner may also specifically look for designers and builders who specialize in modular or prefabricated-construction methods. A homeowner typically works with an architect to revise an existing ADU design template and the builder arranges for shipment of the building components, prepares the site for delivery and completes finishing touches. What to Prepare There are a few basics you’ll want to prepare before contacting designers and builders. GOALS: First, go back to Step 1 to review your goals. Understanding your goals will help your architect create a design that’s right for you. BUDGET: Next, you’ll want an initial budget. The cost of ADU construction can vary dramatically (for example, from $10,000 to $350,000) depending on ADU type, site and finishes. Your builder or architect can help narrow the price range. The financing available to you will also help determine what you can afford (See Step 4). SUPPORTING INFORMATION: Bring along your property information, a survey and any sketches you made in Step 2 to share with potential architects or builders. Hiring a Team An ADU is a long-term personal investment for most homeowners, so it is important to have a development team that understands your vision and with whom you can communicate well. Below are key questions to help you choose a design and development team. Be sure to get bids from multiple designers and builders. COST AND SERVICES: What will the firm charge and what services are included? CREDENTIALS: Has the firm built other ADUs, or completed remodels or new construction at a similar scale? Does it have experience with your municipality’s permitting process? Always verify professional licenses and business addresses: • for contractors • for architects, designers and engineers COMMUNICATION AND PROCESS: Do you feel that you are being heard and are you receiving responses in a timely manner? Signing a Contract When you’ve decided which firm(s) you want to hire, a final contract should detail the work they will do and all costs. The contract is a legal promise by both you and the company to complete the tasks outlined within it. The contract is a foundation for good communication between you and your team. Make sure everything that you discussed is included in the contract. For example, if you are building an above-garage ADU and want to reuse your old garage door, make sure that’s noted. You have the right to add or modify elements of the contract, even after it is signed, by using a change order. TEAM SELECTIONSTEP THREE Building a team ADU it yourself? This section is primarily aimed at homeowners with little or no experience in construction or construction management. Homeowners who feel comfortable managing the development of their ADU may still find some helpful tips to keep in mind when hiring subcontractors. TIP The following is a helpful list of what your contract should include: • contractor’s license number, name and address • total project cost and payment schedule • start date and timeline • list of work to be accomplished and materials to be used • work (if any) to be subcontracted • specific terms about what constitutes substantial “completion of work” • the terms of warranties • a provision requiring the contractor to obtain lien releases from all subcontractors and suppliers (to protect the homeowner if a subcontractor claims they were not paid) • a cancellation penalty (if any) • plan for cleanup and removal of material and debris • any special requests (such as saving scrap lumber or bricks) • requirements for protecting property and landscaping • areas where materials may or may not be stored • any instructions regarding children or pets CREDIT: San Mateo County 2018 3736 In this step you will… • Learn about resources to help you make an informed decision. • Learn about potential financing options. Obtaining financing is often the greatest challenge homeowners face in trying to build an ADU. That’s because the upfront cost can be large and there are not many financial options specifically tailored to this type of development yet. Typically, homeowners use their own savings, a loan or some combination of those sources to finance their ADU. Here is an overview of some basic considerations and available resources to help you manage or lower your costs. Making an informed decision Before making big financial decisions, it’s a good idea to seek advice from an independent homeownership expert. One option in Minnesota is to contact a member of the non-profit Homeownership Advisors Network. Advisory services are available to households of all income levels. Remember that you don’t have to get a loan from the first lender you meet. Be prepared to seek quotes from several different lenders to see which can offer you the best rate and/or terms. Building an ADU may raise your property taxes because it will add value to your home, and rental income may affect your income taxes. The specific impacts will be unique to your home and circumstances. Be sure to consult with a qualified professional tax advisor. FINANCESSTEP FOUR Financing Sources & Resources SPECIALIZED PROGRAMS The Minnesota Homeownership Center offers a Rehab and Repair Program Matrix that outlines renovation loan programs available by region in the state, some of which may be targeted to specific household income levels: www.hocmn.org/resources-for-homeowners/ Minnesota Housing, a state agency, offers home-improvement loans that could be used for ADU projects, in partnership with lenders throughout the state: www.mnhousing.gov TIP If you are applying for a loan, secure your financing about one month before you’re ready to apply for permits. RENTING Renting out your ADU may earn back some of your construction costs over time. Be aware that lender guidelines may not allow consideration of your future rental income when determining your eligibility for a loan. SWEAT EQUITY Find opportunities to do some of the work yourself, depending on your skills. Some ideas include installing cabinets, ordering appliances, painting and landscaping. Financing Considerations 3938 In this step you will… • Review the steps involved in a typical permitting process. • Learn why it’s important to permit an existing ADU. Prepare and Submit Your Application Once all your application materials are ready, submit them to the appropriate department (usually the planning department) and, if applicable, pay the application fee. After receiving the application and payment, city staff will conduct an initial review to make sure your application is complete before sending it forward for review. Revisions One or more of the city departments reviewing your application will likely request revisions. Revisions are a normal and expected part of the permitting process. There may be several rounds of revisions before your application is approved. Permitting an Existing ADU The easiest way to add an ADU to your property is to get a permit for the one you already have! If you’re lucky enough to already have an ADU in your home, or a space that could be converted to an ADU (for example, a basement suite with a mini-bar), find out if you’re legally required to have a permit for it. In some jurisdictions, an unpermitted ADU is illegal. Expect that you may need to upgrade some safety measures, such as smoke detectors, or make other improvements to bring your ADU up to code. Check with your city staff to determine what you need to do. PERMITSSTEP FIVE Permitting Process Overview This diagram illustrates a typical permitting process in Minneapolis, where permits are approved by staff in the planning department. Some municipalities require the permit to be approved by a body such as a planning commission or city council. Use this diagram as an example when visiting the planning counter to gain a better understanding of how your city’s permitting process works and how long each step usually takes. Be sure to clarify with your development team which steps in the process they will lead on your behalf. PRE-APPMEETING HOMEOWNER CITY SUBMITAPPLICATION SUBMITNEEDEDMATERIALS REVISIONSNOYES RECORDOWNER-OCCUPANCYCOVENANT CONSTRUCTION INSPECTIONS BEGINREVIEW PERMITSISSUED MOVE IN!RETURNED TOAPPLICANT• Determine if an ADU is permitted and what the regulations are. • Review application requirements. • Work with your designer and contractor to prepare drawings of the ADU. • Pay application fee. • The City has 15 days to review if your application is complete. • If it is complete, the official review will begin. If it is incomplete, the City will tell you what is missing. • If your application is not complete, you’ll have 30 days to complete it. • The City will likely ask for some revisions to the project to ensure compliance with zoning ordinance and building code. This is an iterative process. Staff will provide feedback to help the applicant resolve any issues. • Once constructions and inspections are complete, a certificate of occupancy will be issued. • Congratulations! You can now move in to your ADU! • Some cities will require you to file a covenant on your property that states the owner must occupy either the main home or the ADU. • If you are approved, you can apply for any remaining needed permits. Once you have a building permit you can begin construction. • During construction, periodic inspections will occur to ensure the work is meeting standards. APPCOMPLETE? READYTO APPROVE?CERTIFICATEOF OCCUPANCY TIP After meeting with the relevant city staff, create a checklist of requirements and due dates for each permit to stay on track. 4140 In this step you will… • Learn what to expect during construction. • Understand your responsibilities. Preparing for disruption Part of the process of building an ADU is preparing yourself mentally for the disruption that occurs during any construction project. Construction typically lasts from a few months to a full year, during which time workers will have access to your property. There will likely be instances where the construction will reach into places that you use on a normal basis, such as a driveway, yard or basement. Talk about these details with your builder to understand what to expect. Your responsibilities While it may feel as though you’re in the backseat during construction while working with a contractor, there are many important responsibilities that you need to fulfill. You’ll need to: • Monitor the work to make certain it’s progressing according to schedule and that the work quality is high. • Make decisions in a timely manner when questions arise. • Ensure that required inspections are occurring. NOTE: Inspections are usually coordinated by the builder, but it is still your responsibility to confirm that they are performed. CONSTRUCTIONSTEP SIX Permit in hand you’re ready to build! PHOTO CREDIT iStock by Getty Images TIP Refer back to p.35 for more information about working with contractors. TIP Remember to update your property insurance to include the completed ADU. 4342 In this step you will… • Learn what you must do before renting out your ADU. • Find resources on how to be a landlord. • Consider hiring property management assistance. After construction is complete and the final inspections are done, your ADU will be ready for you or someone else to call home. This section will provide a handful of resources for renting out your ADU, should you choose to do so. License and Registration Before you can rent out your ADU you’ll need to know whether your city requires you to apply for a rental license or to register your unit. Typically, a short application and fee are required. These applications are managed by different departments depending on the city. Call the city’s general line and asked to be directed to the right department, or ask city staff members for more information during the permitting process. Becoming a Landlord If you decide to rent out your ADU, you should brush up on important landlord-tenant and fair housing laws to know your legal obligations and how to resolve any issues that might arise. Having this information can help you and your tenant maintain a positive relationship. A few resources are highlighted on the next page. If becoming a landlord isn’t for you, look into hiring a property management company to take care of the details. MOVE-INSTEP SEVEN NOTE This section presumes that the ADU is being rented out, but everything discussed also applies if you want to move into your ADU and rent out your main home. Move in! Construction is complete! Landlord Resources The Office of the Minnesota Attorney General provides a handbook that contains a thorough overview of landlord-tenant laws. Landlords and Tenants: Rights and Responsibilities HousingLink is a nonprofit organization with a mission of expanding housing and neighborhood choices for renters. HousingLink offers landlords the chance to advertise their rental-housing openings for free. List a Property The Minnesota Multihousing Association promotes high standards in the development, management and maintenance of rental and owner-occupied multi housing and offers educational programming for landlords. MHA Industry Education HOME Line is a Minnesota tenant advocacy organization that offers publications and trainings to help landlords and tenants understand the laws that govern their relationship The Landlord’s Guide to Minnesota Law Trainings Many cities offer support and training for new landlords. Check with city staff to learn what your city offers. 44 45 References Bekker, Jessie. 2016. “Despite new law, ‘granny flats’ are a no-go in east metro.” Pioneer Press, Dec. 2, 2016. www.twincities.com/2016 /12/02/despite-new-law- granny-flats-are-a-no-go-in-east-metro/. McClure, Jane. 2018. “Alley House,” Saint Paul Historical, accessed August 9, 2018, saintpaulhistorical.com/items/ show/273. Brown, M. and Palmeri, J. 2014. “Accessory Dwelling Units in Portland, Oregon: Evaluation and Interpretation of a Survey of ADU Owners.” Oregon Department of Environmental Quality. www.oregon.gov/deq/ FilterDocs/ADU-surveyinterpret.pdf. San Mateo County. 2018. “Second Unit Workbook.” secondunitcentersmc.org/wp-content/uploads/ Second-Unit-Workbook-FINAL-ONLINE.pdf. Stephan, A. and R.H. Crawford. 2016. “The relationship between house size and life cycle energy demand: implications for energy efficiency regulations for buildings.” Energy 116 (Part 1), 1158–1171. dx.doi.org/10.1016/j.energy.2016.10.038. Additional Resources BOOK Peterson, Kol. 2018. Backdoor Revolution: The Definitive Guide to ADU Development. Accessory Dwelling Strategies, LLC. WEBSITES Accessory Dwellings: “A one-stop source about accessory dwelling units, multigenerational homes, laneway houses, ADUs, granny flats, in-law units…” www.accessorydwellings.org Building an ADU: “THE site for those interested in planning, designing, and building accessory dwelling units (aka ADUs).” www.buildinganadu.com American Planning Association KnowledgeBase - Accessory Dwelling Units: “This collection catalogs resources that provide background, policy guidance, and examples of local plan recommendations and zoning standards for accessory dwelling units from across the country.” www.planning.org/ knowledgebase/ accessorydwellings Terner Center for Housing Innovation ternercenter.berkeley.edu Second Unit Center San Mateo www.secondunitcentersmc.org OTHER GUIDEBOOKS Los Angeles, California | Building an ADU: Guidebook to Accessory Dwelling Units in the City of Los Angeles citylab.ucla.edu/adu-guidebook/ Honolulu County, Hawaii | Accessory Dwelling Unit Homeowners’ Handbook: A Guide for Homeowners on Oahu Interested in Building an Accessory Dwelling Unit hawaiiadu.org/wp-content/ uploads/2016/07/ADU-Manual- ver.-1-FINAL-Web.pdf San Mateo County, California | Second Unit Inspiration secondunitcentersmc.org/ wp-content/uploads/ADU-Idea- Book-FINAL-ONLINE-VERSION.pdf San Mateo County, California | Second Unit Workbook secondunitcentersmc.org/ wp-content/uploads/Second-Unit- Workbook-FINAL-ONLINE.pdf Santa Cruz, California | Accessory Dwelling Unit Manual: Growing Santa Cruz’s Neighborhoods from the Inside www.cityofsantacruz.com/home/ showdocument?id=8875 Santa Cruz County, California | ADU Basics www.sccoplanning.com/Portals/2/ County/adu/ADU%20Basics. pdf?ver=2018-06-07- 110146-073 Santa Cruz County, California | ADU Financing Guide www.sccoplanning.com/Portals/2/ County/adu/ADU%20 Financing%20Guide. pdf?ver=2018-06-07-110307-117 San Francisco, California | sf-ADU sfplanning.org/plans-and- programs/planning-for-the-city/ accessory-dwelling-units/2015_ ADU_Handbook_web.pdf Seattle, Washington | A Guide to Building a Backyard Cottage www.seattle.gov/Documents/ Departments/ SeattlePlanningCommission/ BackyardCottages/ BackyardCottagesGuide-final.pdf Twin Cities Planning Departments Contact Information Contact information for cities that permit Accessory Dwelling Units (ADUs) as of 2018. CITY OF APPLE VALLEY Community Development/Planning 7100 147th St. W. Apple Valley, MN 55124 952-953-2575 commdev@ci.apple-valley.mn.us www.ci.apple-valley.mn.us/index. aspx?nid=83 CITY OF BLOOMINGTON Planning Division 1800 West Old Shakopee Road Bloomington, MN 55431-3027 952-563-8920 planning@BloomingtonMN.gov www.bloomingtonmn.gov/plan/planning- division CITY OF BURNSVILLE Planning Department 100 Civic Center Parkway Burnsville, MN 55337 952-895-4455 www.ci.burnsville.mn.us/index. aspx?nid=139 CITY OF CHASKA Planning Department One City Hall Plaza Chaska, MN 55318 952-448-9200 www.chaskamn.com/148/Planning- Department CITY OF CRYSTAL Planning and Zoning 4141 Douglas Dr. N. Crystal, MN 55422 763-531-1142 www.crystalmn.gov/resident/community_ development/planning_and_zoning/ CITY OF EAGAN Planning Division 3830 Pilot Knob Road Eagan, MN 55122 651-675-5685 planning@cityofeagan.com www.cityofeagan.com/accessory- dwelling-unit-registration CITY OF INVER GROVE HEIGHTS Community Development Department 8150 Barbara Ave. Inver Grove Heights, MN 55077 651-450-2545 www.ci.inver-grove-heights.mn.us/55/ Community-Development CITY OF LAKEVILLE Planning Department 20195 Holyoke Avenue Lakeville, MN 55044 952-985-4420 planninginfo@lakevillemn.gov lakevillemn.gov/342/Planning-Department CITY OF LONG LAKE City Clerk 450 Virginia Ave. Long Lake, MN 55356 952-473-6961 x1 www.longlakemn.gov/index.asp?Type=B_ BASIC&SEC={885FA881-1825-4CE7-9338- B6EBB7AB1836} CITY OF MINNEAPOLIS Community Planning & Economic Development Public Service Center 250 South Fourth Street (Room 300) Minneapolis, MN 55415 612-673-5095 www.ci.minneapolis.mn.us/cped/ projects/ADU CITY OF MINNETONKA Planning Division 14600 Minnetonka Blvd. Minnetonka, MN 55345 952-939-8290 eminnetonka.com/planning CITY OF PLYMOUTH Planning Division 3400 Plymouth Blvd. Plymouth, MN 55447-1482 763-509-5450 planning@plymouthmn.gov www.plymouthmn.gov/departments/ community-development/planning CITY OF RICHFIELD Planning and Zoning Richfield Municipal Center 6700 Portland Avenue Richfield, MN 55423 612-861-9760 com_dev@richfieldmn.gov www.richfieldmn.gov/departments/ community-development CITY OF ROSEVILLE Planning and Zoning 2660 Civic Center Dr. Roseville, MN 55113 651-792-7005 www.cityofroseville.com/307/Planning- and-Zoning CITY OF SHOREVIEW Planning and Zoning 4600 Victoria Street North Shoreview, MN 55126 651-490-4680 www.shoreviewmn.gov/government/ departments/community-development/ planning-and-zoning CITY OF SAINT PAUL Safety & Inspections 375 Jackson Street Suite 220 Saint Paul, MN 55101 651-266-9008 www.stpaul.gov/departments/safety- inspections/accessory-dwelling-units CITY OF STILLWATER Planning and Zoning 216 North Fourth Street Stillwater, MN 55082 651-430-8818 www.ci.stillwater.mn.us/ communitydevelopment CITY OF WHITE BEAR LAKE Planning and Zoning 4701 Highway 61 White Bear Lake, MN 55110 651-429-8534 www.whitebearlake.org/ communitydevelopment/page/ planning-zoning About the Family Housing Fund The Family Housing Fund believes it takes all of us working together to build a strong system that supports access to decent, affordable homes for everyone. Established in 1980, we support the Cities of Minneapolis and Saint Paul, the Metropolitan Council, and Minnesota Housing in their efforts to meet the seven-county metropolitan region’s affordable housing needs. We are unique in focusing on all facets of the housing system and working across sectors to ensure real change. ACKNOWLEDGEMENTS Family Housing Fund thanks the following people for making this guidebook possible: Betsy Gabler, Austin Young | Alchemy Architects Jason Rysavy and Cate Christenson Chris Strom | Christopher Strom Architects Andrew Frenz, Shanna Sether | City of Minneapolis Josh Abrams | Community Planning Collaborative/ Second Unit Center San Mateo Laurie and Larry Demos Jeff Washburne, Staci Horwitz | City of Lakes Community Land Trust Eric and Chrissi Larsen Fue Lee Marnie Peichel | Marnie Peichel Architecture and Design, LLC Eric Meyers | Minneapolis Area Association of Realtors Mariia Zimmerman | MZ Strategies Faith Cable Kumon, Chris Wilson | Project for Pride in Living, Inc. Mike Radel and Dallas Radel Megan and Rob Seeds Gary Findell | Smart Home Construction Karen Chapple, David Garcia | Terner Center for Housing Innovation at UC Berkeley Cathy Bennett | Urban Land Institute Minnesota Renee Martinez-Stone | West Denver Renaissance Collaborative Nancy Sparrow | White Crane Design:Build Homeowners, architects, and contractors who responded to a survey on ADU development Planners and other public officials from around the Twin Cities region who helped provide information The Family Housing Fund would also like to acknowledge the many other resources used in creating this guidebook, all of which are listed under Additional Resources. Illuminating solutions. Sparking change. FHFUND.ORG 310 4th Ave South Suite 9000 Minneapolis, MN 55415 MAIN 612.375.9644 FEBRUARY 2019 ©Family Housing Fund CREDITS WRITING: Casey Lauderdale EDITING: Sarah Berke, Julie Jensen GRAPHIC DESIGN: Ladywithafan Design, LLC PHOTOGRAPHY: Min Enterprises Photography, LLC (unless otherwise noted) Cities in the Twin Cities Metro Area with an ADU PolicyUpdated: February 2019Local CitiesWhere are ADUs allowed?Special Permit Required? Parking for ADUOwner Occupancy Water/ Sewer Min. Lot Size Lot Coverage Min. ADU Size Max. ADU Size TypeOrdinance Section Notes# Built or legalizedApple Valley In R-1 zoning districtConditional Use Permit2 off-street for the ADU and 2 off-street for the main home YesMust connect to main house 40,000 SFCannot exceed 35% 300 SFShall be no larger than 40% of the main home's footprintAttached, Internal 155.382ADU occupancy limited to 3 people; ADUs must be two bedrooms or fewer 2Bloomington*In R-1 and RS-1 zoning districtsPrimary home must have 4 off-street parking spaces YesMust connect to main house 11,000 SF 300 SF960 SF or 33% of the 4-season living area of the main homeAttached, Internal § 21.302.03ADU occupancy limited to 2 people; ADUs must be two bedrooms or fewer1 permitted and constructedBurnsvilleIn R-1 and R-1A zoning districts1 off-street for the ADU and 2 off-street for the main home YesMust connect to main house. If not on municipal lines, must meet private well and septic standards10,000 SF for attached1 acre for detached 300 SF960 SF or 33% of the footprint of the main homeAttached, Detached, Internal 10.7.52ADUs must be two bedrooms or fewer; require park dedication and utility fees 0ChaskaIn Planned Unit Developments Yes768 SFDetached, above garage with alley access Ord. #708 10CrystalIn R-1 and R-2 zoning districts 1 additional for the ADU NoCan be connected to property or utility main 6,000 SF Shall not exceed 50% of the finished floor area of the primary homeAttached, Detached, InternalChapter V, Subsection 515.23, Subdivision 3 1 permittedEaganIn Estate and R-1 zoning districtsAnnual Registration2 off-street for the ADU and 2 off-street for the main home YesMust connect to main houseCannot exceed 20% 300 SF960 SF or 33% of the 4-season living area of the main homeAttached, InternalSection 11.70, subdivision 32ADU occupancy limited to 2 people; ADUs must be two bedrooms or fewer1 constructed and 1 legalizedInver Grove HeightsIn the A, E-1, E-2, R-1A, R-1B, and R-1C zoning districts2 off-street for the ADU and 1 off-street for the main home YesMust share with main house1 acre for detached 250 SF 1,000 SFAttached, Detached, Internal 10.18.1ADU occupancy limited to 3 people 5 registeredLakevilleIn RS-1, RS-2, RS-3, and RS-4 zoning districts and Planned Unit Developments3 garage stalls for the ADU and main homeMust share with main houseAttached, Internal11.50.11.F, 11.51.11.F, 11.52.11.F, 11.53.11.FMust be accessed from inside the main home 2 permittedLong LakeIn the R-1, R-1A, R-2, R-3, and R-4 zoning districtsConditional Use Permit 2 for the ADU Yesx2 the minimum lot size required by the zoning district 900 SFCannot be rented to non-family members1 Cities in the Twin Cities Metro Area with an ADU PolicyUpdated: February 2019Local CitiesWhere are ADUs allowed?Special Permit Required? Parking for ADUOwner Occupancy Water/ Sewer Min. Lot Size Lot Coverage Min. ADU Size Max. ADU Size TypeOrdinance Section Notes# Built or legalizedMinneapolisAs an accessory to a permitted or conditional single-family or two-family dwelling.0 for the ADU, 1 space each for other units YesConnect to main home or the street 300 SFInternal: 800 SF not to exceed the first floor of the main home.Attached: 800 SFDetached: 1,300 SF (incl. parking areas) or 16% of the lot area. Footprint not to exceed 676 SF or 10% of the lot area, not to exceed 1,000 SFAttached, Detached, Internal 537.11~120 permitted and builtMinnetonkaIn R-1 and R-2 zoning districtsConditional Use PermitDetermined on a case by case basis YesMust connect to main homeNo more than 35% of the gross living area of the home, including the ADU or 950 SF, whichever is smaller.Attached, InternalSection 300.16.3.d 30PlymouthWithin residential subdivisions in RSF-R, RSF-1, RSF-2, and PUD zoning districts,that have received preliminary plat approval on or after June 1, 2001 and that include 10 ormore single-family lots 2 off-street for the ADU YesDetached must connect to utility mainShall not exceed the gross floor area of the main home or 1,000 SF, whichever is lessAttached, Detached 21190.04Can only be constructed at the same time as the primary home, as part of a subdivision of 10 or more homes 0RichfieldIn R and R-1 zoning districts3 off-street spaces are required YesAttached and Internal may connect to home 300 SF800 SF or the gross floor area of the principal dwelling, whichever is lessAttached, Detached, Internal514.05 Subd. 8, 518.05 Subd. 8Detached units are only allowed as part of a garage. 2 existingRosevilleIn the LDR-1 zoning district1 additional off-street space for the ADU YesAttached and Internal may connect to home 300 SF650 SF or 75% of the 4-season living area of the main homeAttached, Detached, Internal 11.011.12.B.1ADU occupancy limited to 2 people; ADUs must be one bedroom or fewer5, 2 of which were legalized; 1 in processingShoreviewIn RE and R-1 zoning districtsAccessory Apartment Permit3 off-street spaces are required YesMust share with main house 500 SFNo more than 30% of the building's total floor area nor greater than 800 SFAttached, Internal 207.01ADUs must be two bedrooms or fewer St. PaulR1-R4, RT1, RT2, RM1, RM2Annual affadavit of owner-occupancyNo additional spaces if principal home meets minimum parking requirement YesMust connect to principal home 5,000 SF800 SF; if interior to the principal structure, the principal structure must be at least 1,000 SF and the ADU must not exceed 1/3 of the total floor areaAttached, Detached, InternalChapers 61, 63, 65, and 66 12 Cities in the Twin Cities Metro Area with an ADU PolicyUpdated: February 2019Local CitiesWhere are ADUs allowed?Special Permit Required? Parking for ADUOwner Occupancy Water/ Sewer Min. Lot Size Lot Coverage Min. ADU Size Max. ADU Size TypeOrdinance Section Notes# Built or legalizedStillwaterIn TR, CTR, and RB zoning districtsIn CTR and RB: Special Use Permit4 off-street for the ADU and main house NoCan be connected to property or utility mainTR and RB: 10,000 SFCTR: 15,000 SFCTR: 500 SF, one story attached or 720 SF above a detached garageRB: 800 SFTR and CTR: Attached, Detached, InternalRB: Detached, above garage Sec. 31-50116 approved, but likely more that were permitted by right in RBWhite Bear LakeWhere single-family homes are permittedConditional Use PermitAnnual Certificate of Occupancy renewalDetermined on a case by case basis YesCan be connected to property or utility main200 SF for the first occupant plus 100 SF for each additional occupant880 SF or 40% of the habitable area of the main homeAttached, DetachedSection 1302.125Maximum of 4 occupants 10 permitted* Updated policy is currently under consideration as of February 20193 R-1 lots over 10,000 sq.ft. R-1 lots over 12,000 sq.ft. R-1 lots over 15,000 sq.ft. Composite map of >10k (yellow), >12k (red), >15k (blue) R-1 lots Golden Valley Council Work Session November 9, 2021 Agenda Item 5. Just City Mayoral Fellowship Discussion Prepared By Tim Cruikshank, City Manager Summary The Mayors’ Institute on City Design (MICD) has announced the 2022 Just City Mayoral Fellowship. This 12-week fellowship program is in partnership with Just City Lab and the Harvard Graduate School of Design. Per the website, “this unique and highly interactive program brings together a small group of mayors to directly tackle racial injustices in each of their cities through planning and design interventions.” More information regarding the program is provided by visiting the link listed below. Please note, space is extremely limited so the expression of interest form must be completed by the end of the day on Monday, November 15. Financial Or Budget Considerations There is no cost to participating mayors or cities. Supporting Documents • Link to 2022 MICD Just City Mayoral Fellowship 11/16/21 CITY COUNCIL PRESENTATION Hennepin County District Court Update - Chief Judge Toddrick Barnette CONSENT LICENSES CONSENT BOARDS, COMMISSIONS, & TASK FORCES CONSENT BIDS, QUOTES, CONTRACTS CONSENT GRANTS & DONATIONS Approve Funding Agreement for the Toward Zero Death Grant Program - Resolution CONSENT MISCELLANEOUS Approval of City's Updated Equity Plan/Just Deeds Update Receive and File Facilities Study Final Report Variance extension for 1109 Winnetka Ave N PUBLIC HEARING Consideration of Preliminary Plat, Conditional Use Permit No 171 - 6440 Wayzata Blvd a. Preliminary Plan for Subdivision b. Conditional Use Permit for Financial Institution with Drive-Thru Future Land Use Map Amendment, Zoning Map Amendment, Consideration of Preliminary Plat - 6300 Olson Memorial Highway a. Amendment to Future Land use Map b. Amendment to Zoning Map c. Prelinary Plan for Subdivision OLD BUSINESS NEW BUSINESS First Reading - Modify Section 2-131: Environmntal Commission (adding 2nd student member) 12/07/21 HRA REGULAR MEETING CONSENT MISCELLANEOUS Receive and File Previous Quarter's Financial Reports PUBLIC HEARING OLD BUSINESS NEW BUSINESS Public Comment and Adoption of HRA Budget & Levy MEETING DATE ITEM MEETING DATE ITEM 12/07/21 CITY COUNCIL PRESENTATION Receive/Approve - Human Services Commission Annual Allocation Report Public Safety Service Recognition (PLACEHOLDER) CONSENT LICENSES Cigarette/Tobacco License Renewals Therapeutic Massage Facility & Individual Therapist License Renewals CONSENT BOARDS, COMMISSIONS, & TASK FORCES CONSENT BIDS, QUOTES, CONTRACTS Approve Custodial Agreement with Contractor TBD CONSENT GRANTS & DONATIONS Resolution - award acceptance and approve Pohlad grant agreement Resolution - update grant policy CONSENT MISCELLANEOUS Annual Designation of Polling Places for Upcoming Election Cycle Resolution - Consent and Authorization for the HRA Budget and Tax Levy PUBLIC HEARING Truth in Taxation Hearing & Adoption of Budget and Tax Levy OLD BUSINESS NEW BUSINESS Second Reading - Modify Section 2-131: Environmental Commission (adding 2nd student member) - Approve Modification of Environmental Commission Bylaws First Reading - Public Land Disposition Ordinance 12/14/21 COUNCIL WORK SESSION 1 Presentation - Embedded Social Worker 2 Discussion - amplified music and alcohol in city parks 3 Employee Handbook Updates Discussion 4 Review Next Year's Legislative Priorities 5 Council Review of Future Draft Agendas 12/21/21 CITY COUNCIL PRESENTATION Presentation of Bill Hobbs Human Rights Award Recognition of Outgoing Council Member Fonnest CONSENT LICENSES MEETING DATE ITEM CONSENT BOARDS, COMMISSIONS, & TASK FORCES Set Upcoming Year's City Calendar and Meeting Dates Resignation from Human Services Commission CONSENT BIDS, QUOTES, CONTRACTS Approve Purchase of Police Vehicles Approve Purchase of Dump Truck Approve Hennepin County Waste Delivery Agreement (Odd Years Only) Approve Sentence-to-Service Contract with Hennepin County WatchGuard - BodyCam contract (Tentative) CONSENT GRANTS & DONATIONS Approve annual donations from HSC Annual Grants Report CONSENT MISCELLANEOUS Approve Engagement Letter - Auditing Services for Fiscal Year Resolution - Update overall City Crisis Communications Plan to include pandemic messaging for future use Resolution - Update CORR Plan - add pandemic info for future use PUBLIC HEARING OLD BUSINESS NEW BUSINESS First Consideration Ordinance Amending City Code Chapter 103 authorizing City to complete Plumbing Plan Review (2nd consideration 01-04-22) Second Reading - Public Land Disposition Ordinance