Comprehensive Plan Update
Planning Services Department
50 West 13th Street
Dubuque, Iowa 5200]-4864
Phone (3]9) 589-42]0
Fax (3]9) 589-4]49
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March 28, 2000
The Honorable Mayor and City Council
City of Dubuque
50 W. 13th Street
Dubuque, IA 52001
RE:
Process for Update of the Comprehensive Plan and Related Planning Efforts;
Process for 28E Agreement for Fringe Area Growth and Development
Dear Mayor and City Council Members:
Introduction
The Long Range Planning Advisory Commission requests the City Council's approval
to initiate a process for the 2000 update of the Comprehensive Plan and related
planning efforts. The Commission also requests the City Council's approval to initiate
a process for development of a 28E agreement with Dubuque County for fringe area
growth and development. Background information is enclosed for your review and
consideration.
Discussion
The City Council adopted the Comprehensive Plan in two phases in 1994 and1995.
In 1999 and 2000, the Commission and City staff discussed ways to update the
Comprehensive Plan and undertake related planning efforts.
The update focuses on the two major components of the Plan: 1) the systems map of
land use, transportation and utilities; and 2) the goals and objectives. The systems
map update will consist of a land use inventory, an updated development needs study
and a map update. The goals and objectives will be updated through compilation of
a civic index, a review of the goals and objectives, focus group discussions and
coordination with community planning efforts.
Related planning efforts that the Commission would like to address in the future are
described in the first memo. These efforts are: a 28E agreement with Dubuque
County for fringe area growth and development, neighborhood plans, gateway/corridor
design guidelines, and a development/redevelopment planning study.
Service
People
Integcity
Reoponsibility
Innovation
Teamwork
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Comprehensive Plan Update
page 2
One of the related planning efforts, the 28E agreement with Dubuque County, is
discussed in greater detail in the report prepared by Assistant Planner Lisa Sesterhenn.
The Commission believes cooperative planning with the County for fringe areas is
important for successful implementation of Dubuque's Comprehensive Plan.
Recommendation
The Commission recommends that the City Council approve the process for updating
the Comprehensive Plan, as described in the first memo prepared by Planning Services
Manager Laura Carstens.
The Commission also recommends that the City Council approve the process for the
related planning efforts, as described in the first memo.
The Commission further recommends that the City Council approve the process for the
development of a 28E agreement with Dubuque County for fringe area growth and
development, as described in the report prepared by Assistant Planner Lisa Sesterhenn.
Specifically, we recommend that the City Council establish the Commission as the
working group to develop a draft model fringe policy agreement and land use map
(please see options listed under item 2 on page 5 of the report).
The Commission would appreciate the City Council's continued support for the
Comprehensive Plan and long range planning for our community.
Sincerely,
~ Ì"'~~
Gordon Mills, Chairperson
Long Range Planning Advisory Commission
Enclosures
cc
Michael Van Milligen, City Manager
Laura Carstens, Planning Services Manager
Rick Stein, Vice-Chairperson, Long Range Planning Advisory Commission
CITY OF DUBUQUE, IOWA
MEMORANDUM
March 7, 2000
TO:
Long Range Planning Advisory Commission
FROM:
Laura Carstens, Planning Services Manager ~
SUBJECT: Comprehensive Plan Update and Related Planning Efforts
INTRODUCTION
This memo transmits information developed by the Planning Services staff and the Long
Range Planning Advisory Commission for the 2000 update of the 1 994 -1 995 Dubuque
Comprehensive Plan. This memo also transmits information developed by the Planning
Services staff for the related planning efforts that the Commission would like to undertake.
BACKGROUND
Phase 1 of the Comprehensive Plan included the policy statements and 120 goals for the
14 elements of the plan. Phase 2 of the Comprehensive Plan, adopted in 1995, included
the land use, transportation and utilities systems map and the objectives for the goals. In
1996, the Planning Commission began work on an evaluation process for the Plan.
In 1997, the Commission presented the Citizen's Guide, the poster-size systems map, the
Comp Plan video and an evaluation form to the City Council (see attachment). In 1997-
1998, the Commission and Planning Services staff undertook a public relations program
to introduce the community to the plan. We also undertook an evaluation process, using
the evaluation form with City departments and key stakeholders in the community. The
evaluation process was not successful.
In addition, Planning Services staff and Yaggy Colby Associates prepared an Annexation
Analysis in 1996 -1998. The Planning Commission assisted with land use planning in 2
of the 14 annexation study areas that lay outside the boundaries of the Comp Plan's 38
potential growth areas.
Comp Plan Update
page 2
DISCUSSION
In 1999 and 2000, the Commission has discussed ways to update the Comprehensive
Plan. Below is a draft process developed by the Commission and Planning Services staff
for an update of the Comp Plan in 2000.
1.
Land Use. Transportation and Utilities Systems Map
Prior to development of the systems map for the Comprehensive Plan, Planning Services
staff conducted a land use inventory and prepared a Development Needs Study. Adopted
in 1995 as Phase 2 of the Comp Plan, the systems map depicts land use, transportation
and utilities (City water and sewer).
The transportation systems shown on the Comp Plan map were drawn largely from a
coordinated planning effort with the Dubuque Metropolitan Area Transportation Study
(DMATS). DMATS is updating their Long Range Transportation Plan for 2020 this year.
The DMA TS update is scheduled for completion in August, 2000. The Iowa Department
ofTransportation (lOOT) has a numberoftransportation studies underwayforthe Dubuque
area at this time as well. Staff recommends that the Commission link with the DMA TS and
IDOT transportation planning efforts in updating the Comp Plan and the system map.
The 1996 -1998 Annexation Analysis builds on the systems map, and provides a great deal
of information about City water and sanitary sewer services. This year, the City has begun
a comprehensive storm water management study. Since storm water is similar to a City
utility, and since storm water management practices can affect land area requirements for
detention basins and impact downstream development, staff recommends that the updated
systems map include storm water management.
A.
Land Use Inventory
In 1990, Planning Services staff inventoried land use in the entire community, and in the
38 identified growth areas in the urban fringe. This inventory would be updated in 2000.
The product would be used to prepare a systems base map for the updated Comp Plan.
The land use inventory would include the land within the city limits, as well as land included
in the Annexation Analysis and within 2 miles of Dubuque's corporate limits.
The Commission's role would be to review the results of the data collection effort, and
provide recommendations on the presentation format.
Comp Plan Update
page 3
Time frame:
Research and update land use data base: May - July, 2000
Produce systems base map: May - July, 2000
Present systems base map to City Manager and Commission: AugusUSeptember, 2000
Present systems base map to Council: September/October, 2000
B,
Development Needs Studv
In 1993 - 1994, Planning Services staff prepared a Development Needs Study that
identified the needed reserves for 5 major land uses: single-family residential, multi-family
residential, commercial, industrial and park/open space. In 2000, this study would be
updated by staff to evaluate our progress, current conditions and expected trends. It would
include all the areas mapped for the 2000 land use inventory.
The Commission's role would be to review the results of the Development Needs Study
update, and recommend any necessary revisions.
Time frame:
Research and update Development Needs Study: March - July, 2000
Present Development Needs Study to City Manager and Commission: July/August, 2000
Present Development Needs Study update to Council: AugusUSeptember, 2000
C.
Land Use MaD UDdate
Initially, the Commission and staff would look at the 38 identified growth areas and the
annexed areas, and identify new growth areas, such as along the Phase IV of the
Northwest Arterial, John F. Kennedy Road from the Northwest Arterial north to the city
limits, and the Southwest Arterial and Highway 20 corridors. The Commission and staff
would refine the perimeter of the Comp Plan's land use map, as well as the suggested
future land uses.
Stakeholders, such as the Chamber of Commerce, Greater Dubuque Development
Corporation, Dubuque Area Homebuilders Association, Zoning Advisory Commission,
Developers' Roundtable and key City departments would be invited to provide their input.
Possible venues include a panel discussion or workshop similar to those held in the early
1990's for preparation of the Comp Plan. Then the Commission would publish the draft
document in the local newspaper or some other format, and make it available at the Public
Library, to solicit public comment.
Comp Plan Update
page 4
The Commission would review the input received, and then further refine the land use map
before submitting their recommendations to the City Council. In addition, the Commission
would develop, test and then recommend a process for the periodic updating of the land
use map on a 1 to 2 year schedule.
Time frame:
Review the 38 identified growth areas and the annexed areas: May/June, 2000
Identify new growth areas: May/June, 2000
Refine the perimeter of the Comp Plan's land use map: May/June, 2000
Hold panel discussion or workshop: July/August, 2000
Publish the draft map in the local newspaper: AugusUSeptember, 2000
Develop a process for 1 - 2 year update of the land use map: July/August, 2000
Have draft map available at the Public Library: AugusUSeptember, 2000
Review the input received, and then further refine the land use map: September, 2000
Present draft map to City Manager and Council: October/November, 2000
Present process for 1 - 2 year update of the land use map to City Manager and Council:
October/November, 2000
2.
Comprehensive Plan Goals and Obiectives
A.
Civic Index
Prior to development of goals, objectives and systems maps for the Comprehensive Plan,
Planning Services staff collected data on for a "civic index" of existing conditions and facts,
and critical issues and trends for the Plan's 14 elements. In 1990 - 1992, staff collected
information from key stakeholders, City departments, State agencies and the U.S. Census
Bureau on existing facts and conditions, and critical issues and trends. Staff will begin to
update this civic index in 2000. Where possible, we will develop trend lines, charts and
graphs of historical data. The complete update will be phased in, based on the availability
of Census 2000 data.
For the 2000 update, the Planning Services staff will research the similarity of Dubuque's
civic index to "community indicators". Community indicators are a means for local
government, business and civic leaders to assess progress and measure overall
community health and well-being. Community indicators are especially useful in measuring
the success of programs to improve the community's quality of life.
The Commission's role will be to review the results of the civic index update, and provide
recommendations on the content and presentation format.
Comp Plan Update
page 5
Time frame:
Research and update civic index: January, 2000 - June, 2000
Research community indicators: May, 2000 - July, 2000
Produce trend lines, charts and graphs of historical data: May, 2000 - July, 2000
Present civic index update to City Manager and Commission: August, 2000
Present civic index update to Council: September, 2000
B.
Review of Goals and Obiectives
Development of the goals and objectives for each of the Comp Plan's 14 elements
originally involved input from the key stakeholders, City departments and the general
public. The 2000 update of the Comp Plan's 120 goals and hundreds of objectives would
involve a three-track approach, with Commission members, key stakeholders and City
departments evaluating the current goals and objectives.
The Commission has agreed that all Commissioners would give a cursory review to all the
elements. Commissioners also have agreed to divide the 14 elements among themselves,
with each Commissioner taking 1 - 2 elements to review in depth and to critique for their
relevancy.
The Commission would invite key stakeholders and City departments to focus group
meetings to discuss to the relevancy of the goals and objectives for the each of the
elements, Planning staff would prepare the results of the focus group discussions for each
element. The Commissioner who selected the element discussed during a particular focus
group session would lead the discussion of that element with the rest of the Commission.
For 4 elements, there are community planning efforts already underway that would serve
the same purpose as focus group discussions held by the Commission. These planning
efforts could stand alone or be supplemented by focus group sessions. The remaining 10
elements would be discussed in focus group meetings hosted by the Commission.
The Land Use and Urban Design Element and the Housing Element would be linked with
the systems map update described above, the related planning efforts described below,
the action plans being developed as a result of the Housing Conference held in February,
and the Consolidated Plan process presented to the Commission at the February meeting.
The Health Element would be coordinated with the community health planning currently
underway. The Transportation Element would be coordinated with the DMATS and IDOT
planning that is likewise underway.
Comp Plan Update
page 6
Focus GrouD Discussions/Coordination with Communitv Plannina Efforts. by Element:
Land Use and Urban Design:
coordinate with Land Use Map Update (described
above), Consolidated Plan update, Housing Conference
results and related planning efforts (described below);
review the FY01-FY06 Capital Improvement Program.
Time frame: April - October, 2000
Transportation:
coordinate with DMATS update of long range transportation plan
(described in attachment) and IDOT planning in the community;
review the FY01-FY06 Capital Improvement Program.
Time frame: April - October, 2000
Infrastructure:
coordinate with Land Use Map Update (described above)and storm
water management study; review the FY01-FY06 Capital
Improvement Program.
Time frame: April - December, 2000
Environmental Quality:
hold focus group meeting(s) with key stakeholders in
community and local government.
Time frame: May - July, 2000
Economic Development: coordinate with Land Use Map Update (described above),
Consolidated Plan update, Housing Conference results and
related planning efforts (described below); review the FY01-
FY06 Capital Improvement Program.
Time frame: April - December, 2000
City Fiscal: hold focus group meeting(s) with key stakeholders in community and local
government; consider survey in City Focus.
Time frame: May - August, 2000
Health:
Coordinate with community health planning.
Time frame: March - September, 2000
Comp Plan Update
page 7
Housing:
coordinate with Land Use Map Update (described above), Consolidated Plan
update, Housing Conference results and related planning efforts (described
below); review the FY01-FY06 Capital Improvement Program.
Time frame: April - December, 2000
Human Services:
hold focus group meeting(s) with key stakeholders in community and
local government.
Time frame: October - December, 2000
Education:
hold focus group meeting(s) with key stakeholders in community and local
government.
Time frame: April - December, 2000
Recreation: hold focus group meeting(s) with key stakeholders in community and local
government; review the FY01-FY06 Capital Improvement Program.
Time frame: August - December, 2000
Cultural Resources:
hold focus group meeting(s) with key stakeholders in
community and local government; review the FY01-FY06
Capital Improvement Program.
Time frame: October - December, 2000
Public Safety.
hold focus group meeting(s) with key stakeholders in community and
local government; review the FY01-FY06 Capital Improvement
Program.
Time frame: April - September, 2000
Diversity:
hold focus group meeting(s) with key stakeholders in community and local
government.
Time frame: October - December, 2000
The Commission would bring together the results of these 3 evaluation tracks to develop
recommendations for the goals and objectives. Then, the Commission would hold public
Comp Plan Update
page 8
hearing(s) and make the draft text available to the public for review and comment, before
submitting recommendations to the City Council.
Time frame:
Compile results of the 3 evaluation tracks: May, 2000 - February, 2001
Develop recommendations for the goals and objectives: March - June, 2001
Submit draft text to City Manager and Council for initial comments: July/August, 2001
Submit draft text to key stakeholders for review and comments: September, 2001
Make the draft text available to the public for review and comments: September, 2001
Hold public hearing(s): October, 2001
Revise draft text based on public input: November, 2001
Submit recommendations to the City Manager and Council: December, 2001
3.
Related Land Use Plannina Efforts
Commissioners and Planning Services staff have identified several related planning efforts
that might be incorporated into the Comp Plan update or otherwise addressed.
A.
28E AGreements for Extraterritorial Jurisdiction
Identified in the Comp Plan and reiterated in the Annexation Analysis, Commissioners and
staff have discussed possible ways to plan cooperatively with the County and other cities
for growth and development in the fringe areas. Planning Services staff have prepared the
attached reports on 28E agreements in regard to this topic. We would like your input on
the process recommendation described in the attached memo prepared by Assistant
Planner Lisa Sesterhenn.
Time frame: coordinate with Dubuque County's planning effort.
B.
NeiGhborhood Plans
The 1995 Comp Plan's land use map did not suggest future land uses for the built-up
areas of town -- only the undeveloped growth areas. The Commission would like to look
at neighborhoods in Dubuque - how they exist now, how they've been affected by change
(such as highways) and what visions can be developed for them.
This planning effort could involve staff from City departments and other Commissions with
an interest in neighborhoods. It could focus on neighborhoods with an organized
Comp Plan Update
page 9
neighborhood association and/or in targeted CDBG areas as a priority, and then progress
through the entire city.
The U.S. Department of Housing and Urban Development (HUD) strategy for
Neighborhood Revitalization could be a model for the Commission to use or adapt for their
neighborhood planning. A summary of this HUD strategy is attached. In May, the
Community and Economic Development Department will begin the neighborhood planning
process for areas that qualify for HUD's Neighborhood Revitalization Strategy. In addition,
the some of the action plans that result from the Housing Action Conference held on
February 11, 2000, could be incorporated into or linked with the neighborhood planning
efforts.
Time frame: coordinate with Community and Economic Development Department on
Neighborhood Revitalization Strategy.
c.
Gatewav/Corridor Desian Guidelines
The Commission would examine efforts in Dubuque and other cities to develop gateway
treatments and design guidelines for transportation corridors, and then evaluate options
that might be appropriate in Dubuque. The Commission would test these options with key
stakeholders, such as the Chamber, and the general public before providing
recommendations to the City Council. This effort would involve staff from other
departments, as well as community groups and organizations.
Time frame: 2001/2002
D.
Development/Redevelopment Plannina Studv
Commissioners identified a number of separate topics that they would like to study; we
noted that these various topics could be combined in a developmenUredevelopment
planning study. The separate topics that the Commission identified were:
The Commission indicated that they would like to look at brownfield sites in Dubuque -
where they are, how they are contaminated, how they can be developed, and what
incentives the City could use to encourage development on these sites rather than fringe
development. Commissioners said that they would like to examine riverfront development
- what's planned, what's happening, and how the area may develop. Commissioners also
noted that they would like to look at infill development, to encourage growth in town and
within the existing building stock of Dubuque, and to make infill development a priority of
Comp Plan Update
page 10
the Commission and the City to address. In addition, the Commission wanted to examine
neotraditional, new urbanism, and other subdivision planning methods for directing
development in Dubuque.
The Commission, with assistance from staff, would prepare a developmenUredevelopment
planning study. The study would identify sites that are undeveloped or underdeveloped,
as well as their potential and their constraints for development or redevelopment. In
addition to brownfield sites, riverfront areas, and infill sites, the study could look at areas
with utility extensions and/or a lack of access that could become growth areas if their
potential and constraints were addressed.
Sites that would benefit from this type of planning study include: the area south of
Farmland Foods and west of U.S. 61/151; the red brick warehouse district east of
Downtown and west of U.S. 61/151; the 4th Street Peninsula; and the area south of the Ice
Harbor. This planning effort would involve staff and City Commissions from other
departments, as well as other organizations and groups in the community.
Time frame: 2001/2002
RECOMMENDATION
I recommend that Commissioners review the proposed processes and planning efforts
identified for an update of the Comprehensive Plan, and then provide direction as to how
you would like staff to work with the Commission in this effort.
I also recommend that Commissioners review the proposed processes for the related
planning efforts identified above, and then provide direction as to how you would like staff
to work with the Commission in addressing each of these issues.
Attachments
cc
Michael Van Milligen, City Manager
Lisa Sesterhenn, Assistant Planner
Tim Moerman, Assistant City Manager
Jim Burke, Community and Economic Development Director
THECITYQF ~
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Planning Services Department
5Q West 13th Street
Dubuque. Iowa 52001-4864
Phone (319) 589-4210
August 25, 1997
The Honorable Mayor and City Council Members
City of Dubuque
City Hall - 50 W. 13th Street
Dubuque, IA 52001
RE: Comprehensive Plan Public Information Materials
Dear Mayor and City Council Members:
It is the pleasure of the Long Range Planning Advisory Commission to present the City
Council with the enclosed public information materials for the Dubuque Comprehensive
Plan:
Creating the Future: A Guide to the Dubuque Comprehensive Plan.
The Comprehensive Plan Systems Map (enclosed in the back pocket of the
citizen's guide).
The Comprehensive Plan Evaluation Form.
A short video tape introducing the Comprehensive Plan will be shown at the City
Council's September 2nd meeting.
The Commission wants to ensure that this plan remains a reflection of community
consensus and is used by community organizations in their planning efforts. To
achieve this goal, the Commission will use these public information materials in the
following efforts:
1.
The citizen's guide, systems map and videotape will be distributed to local news
media to encourage their help in "spreading the word" about the plan.
2.
The citizen's guide, systems map, video tape and evaluation form will be
distributed to the City departments and community organizations that
contributed to development of the plan. These key stakeholders will be asked
to return completed evaluation forms to the Commission.
Se,,'ice
People
Integtity
Responsibility'
Inno"ation
Teamwork
3.
An invitation will be sent to local service clubs and organizations to view the
video tape for an introduction to the Comprehensive Plan.
4.
The citizen's guide and systems map will be available in the reference section
of the Public Library. The video tape will be available for check out at the
Library, and shown on City Channel 8.
5.
The public information materials and the complete Comprehensive Plan will be
available at the Planning Service Department.
The Comprehensive Plan Evaluation Form will be used to monitor progress on
achieving the Plan's goals and objectives. The intent is to establish a process to
correlate current strategic planning at the City and in the community with the Dubuque
Comprehensive Plan. The form also is hoped to be a means to identify and evaluate
partnerships and linkages to attain the Plan's goals.
The form is to be a reporting mechanism for the Commission to chart progress on
implementation of the Comprehensive Plan:
which goals and objectives are being met by the community?
which goals and objectives are not being addressed?
are these goals and objectives still valid, or do they need revision?
Using this form, the Commission would be able to report back to the City Council
periodically on the status of the Comprehensive Plan. The Commission could identify
for the City Council portions of the plan that are working well, and portions that may
need revision.
In an effort to make this process more "user-friendly", the form coordinates with the
City's budget format. Hopefully, this revision will minimize any duplication of reporting
efforts. The form lists the Comprehensive Plan element, and then summarizes the
goals and objectives. The goals and objectives are often lengthy, so the summarized
versions will keep the form simpler and easier to use.
One version of the form will be used by City departments. A separate version of the
form has been developed for organizations/agencies responsible for Plan
implementation. Both forms are attached.
In December, the Commission will review the completed evaluation forms from City
departments and organizations. The Commission then will present these results to the
City Manager and City Council. Through periodic evaluations, the Comprehensive Plan
will remain a viable guide for community decision-making.
The Long Range Planning Advisory Commission would like to take this opportunity to
thank the City Council, City Manager and City staff for your support in developing the
Comprehensive Plan and these public information materials. The quality of the
citizen's guide, systems map and video tape are excellent. These public information
materials will be helpful tools for introducing the Comprehensive Plan to the
community.
Thank you.
Sincerely,
L
Ó'.xl~(--I!¿6
Anna O'Shea, Chairperson
Long Range Planning Advisory Commission
Enclosures
cc Michael Van Milligen, City Manager
Laura Carstens, Planning Services Manager
Long Range Planning Advisory Commission Members
AO/dd
DUBUQUE COMPREHENSIVE PLAN
EVALUATION FORM
(CITY DEPARTMENTS)
DEPARTMENT:
CONTACT:
PHONE:
PLAN ELEMENT: IMPLEMENTATION RELATES
BUT RESOURCES
CITY FISCAL NEEDED
GOALS AND N PROGRAM/PROJECT TITLE CIP PROJECT ESTIMATED . DNGDtNG MDNEV STAFF FACILITIES
OBJECTIVES A NO. BUDGET COMPLETION'
GOAL 1: PROMOTE FISCAL
SOUNDNESS OF CITY
GOVERNMENT
1.1 UPGRADE BOND RATING
1.2 MONITOR CHANGING
CONDITIONS, TRENDS AND
LEGISLATION
1.3 EVALUATE REVENUE
ALTERNATIVES TO
PROPERTY TAX
1.4 USE SOUND
PURCHASING PRACTICES
1.5 USE SOUND RISK
MANAGEMENT PRACTICES
ADDITIONAL REMARKS:
NEIGHBORHOOD REVITALIZATION
A HUD Strategy
prepared 1/17/00
The HUD regulations (24 CFR Part 570) authorize entitlement grantees to devleop comprehensive
approaches to address economic development needs in a particular neighborhood within their
community.
A 'Neighborhood Revitalization Strategy" could offer Dubuque opportunity and flexibility.
The Neighborhood Revitalization Strategy is a written economic development plan that is submitted to
HUD in conjunction with the Consolidated Plan. (Can be an amendment to the Consolidated Plan.)
Benefits:
- enhanced flexibility in undertaking economic development activities
- ANY job creation or retention effort undertaken and focused on the neighborhood is deemed to
meet the standard CDBG low/moderate income area benefit requirements. (Economic
development activities are exempt from the aggregate public benefit standards.)
- Businesses who receive assistance are not required to track the income of applicants, but only
the number of persons. (Less paperwork)
- flexibility to promote innovative programs in economically disadvantaged areas
- Can track scattered site housing units developed as a single structure.
- Increased flexibility in using housing to assist in revitalization.
- All public services offered in the neighborhood are exempt from the public services cap, but
must be carried out by a Community-Based Development Organization.
Neighborhoods within Federally-designated Empowerment Zones are assumed to meet the requirement
that the neighborhood be high percentage of low/moderate income persons.
THE STRATEGY must:
- be developed in consultation with residents, business owners, financial institutions, non-profits,
community groups and members of the community/neighborhood.
- assess the ECONOMIC NEEDS of the neighborhood
- discuss: unemployment. number of businesses in the area, assess capital needed, housing needs, current
availability of economic development or other community services in the area.
- analyze: urunet demand for services, community organizations ready to assist, skills/services
underused, and fledgling projects unable to take root due to lack of funding.
CITY OF DUBUQUE, IOWA
MEMORANDUM
February 15, 2000
TO:
FROM:
Laura Carstens ~
Lisa Sesterhenn
28E Research and I plementation Recommendations
SUBJECT:
This memo is to respond to your request to provide a recommendation regarding the
process to follow for development of an extraterritorial agreement or agreements with
Dubuque County and possibly other municipalities. For the purposes of this report, I
have reviewed the Development Needs Survey, City of Dubuque's Comprehensive
Plan, the Annexation Analysis information and the Facilitating Development Report. I
have also reviewed a number of 28E agreements and contacted city staff from Iowa
City and Waverly to research the process/politics associated with the development of
their 28E agreements. Finally, I have reviewed the development themes of the Smart
Growth process and attended the Urban Sprawl Conference in Des Moines sponsored
by the Iowa Engineering Society,
Based on this research, I have concluded that it would be desirable for the City of
Dubuque to develop a long range strategic plan for growth in concert with Dubuque
County. Part of the long range plan would include development of one or more 28E
agreements to allow for zoning control and subdivision review in areas targeted for
growth and annexation by the City.
The remainder of this report provides an analysis and background research for this
conclusion.
Development Needs Survey
The Development Needs Survey, completed in 1994, provides a baseline of information
regarding future development needs. The key to the study was the identification of a
"development reserve" necessary to meet future growth needs for various land uses. A
summary of the development reserves follows.
Type of Land Use Acres Required for Reserve to Meet
Future Development Needs
Single-Family 600-700
Multi-Family 200-300
Commercial 500-800
Industrial 700-800
Parks and Open Space 500-650
TOTAL 2,500 - 3,250
Through the construction of the Dubuque Technology Center and the expansion of the
Dubuque Industrial Center, the acres needed for industrial development have been
met. The Comprehensive Plan identifies land use and urban design goals to facilitate
development of the acres needed for residential and commercial acreage.
City of Dubuque Comprehensive Plan
The City of Dubuque's 1995 Comprehensive Plan includes land use and urban design
goals and objectives that speak to the need to encourage city-county cooperation to
develop policies for development of fringe areas, to enhance development, and to avoid
unregulated sprawl. Specific land use and urban design goals from the Comprehensive
Plan are shown below.
To plan for the city's future and orderly development within a regional context.
Consider the community's regional setting and economy when assessing the
opportunities and constraints for land development.
Minimize the negative impact of urban fringe development on regional
watersheds, ecosystems and rural infrastructure.
Encourage city-county cooperation to develop policies for development of fringe
areas, to enhance development and avoid unregulated sprawl.
Limit undefined urban sprawl by clearly defining the city's edge with open space,
bringing corridors of green into the city along natural and roadway corridors.
Encourage cooperative regional planning with all levels of government, to
develop a strategic plan for fringe area development that may include
annexation.
Balance farmland and critical area preservation with the need to annex
developable land for urban expansion.
It's clear that national and state trends are calling for the development of county-wide or
community-wide long range land use plans. While the 1 995 Comprehensive Plan
outlines land use policies for within the City limits, growing the City will require
communication and planning with other entities. We also need to be attuned to the
theories presented in the Smart Growth literature and customize the themes to a
community that wants to encourage planned growth versus unplanned sprawl.
2
Annexation Analysis
The Development Needs Survey illustrates how much the City needs to grow in order to
meet the acreage reserves for a variety of land use and the 1995 Comprehensive Plan
states the goals that will allow the City to grow to meet the acreage needs. In order to
meet the acreage needs, the City can either utilize existing vacant City land or expand
the City limits through annexation. While inward expansion is part of the
Comprehensive Plan, it is also clear that the City will need to expand its limits through
annexation in order to meet the identified needed development reserves.
The Annexation Analysis, completed in 1998 by City staff and Yaggy-Colby Associates,
had the following purpose: preserve and protect orderly growth and to plan for logical
extensions of City services to promote manageable growth patterns. Based on a cost-
benefit analysis of 14 potential growth areas, priority areas and potential timeframes for
annexation were developed. The priorities were categorized as those with immediate
opportunity for development and annexation, benefitted areas, and areas for
preservation and control. For the areas where the City wants to grow based on the
priority areas identified in the analysis, there are two ways of accomplishing annexation:
voluntary and involuntary.
Based on the Annexation Analysis, Dubuque has a plan for fringe area development
with potential areas identified for residential and commercial development which would
more than satisfy the acreage reserves stated in the Development Needs Survey. The
long range growth plan for development and annexation can't happen in a vacuum.
Coinciding with the City of Dubuque's fringe development plans, other municipalities are
also faced with fringe area development issues. Since Dubuque has no claim on its
areas targeted for growth, other municipalities can also target these same areas for
their growth, as was the case with Asbury. In addition, developers have targeted these
areas for subdivisions meeting county building specifications. In conclusion, when the
City moves forward with its annexation plans, we should ensure that the fringe areas
that are annexed were developed in accordance with established City goals and
standards.
Facilitating Development Study
Another major issue is the ongoing development in Dubuque County in the areas
targeted for growth by the City of Dubuque. Since we do not have control of how this
development occurs, it will not meet city specifications for development unless this is
agreed on by all entities before development occurs. This is a major issue as 1998
residential growth for Dubuque County and other Cities was 2.5 times more than growth
in the City of Dubuque. There are two ways to increase residential development within
the city limits:
Encourage development in the existing city limits
Expand Dubuque's city limits through annexation
Although developing existing city land is a viable option, growth is limited by the
availability of developable land suitable for residential growth close to the growth areas
3
of the city (south and west) and the cost of developing residential land in the City of
Dubuque. In response to the issues presented by the Developers' Roundtable, city staff
initiated a Facilitating Development study to determine if developers needs can be
addressed. Based on the study, an action plan was developed for city staff to follow
changing some of the policies and costs of city development. Although some changes
were made to address the issues, it does not appear that the cost of building in the city
will be significantly reduced. Therefore the cost differential of developing land in the city
compared to other municipalities will still exist and the city can expect fringe area
developments to continue to occur unless a policy is developed.
The second interrelated options for residential growth are to immediately annex
additional land for development and/or develop a long range strategic county plan for
land use and development. The County of Dubuque, through ECIA, has submitted an
application for funding consideration from the Rural/Community Planning and
Development Fund. The County is requesting $60,000 to develop a multi-community
land use plan. According to Larry Nagle, he feels confident that the County will receive
grant monies either this fiscal year or during the next funding round. Please refer to
Attachment 1 for a copy of the pre-application.
In order to implement a county-wide plan, 28E agreements would need to be developed
to allow the City to exercise zoning control and subdivision review.
28E Agreements and Process
Determing a city's ability to grow and development of a county-wide land use and urban
development plan, and minimizing urban sprawl are all issues that are not unique to the
City of Dubuque, Dubuque County and other county municipalities. Many other counties
and cities in Iowa have already developed 28E agreements to address fringe area policy
and growth issues. A number of these agreements were researched by Planning
Services staff during August of 1999. The fringe area policy agreements between Iowa
City and Johnson County and Iowa City and Coralville seem to most closely reflect the
situation in Dubuque County. I have also talked with the Planning Director for Iowa City
regarding the process they utilized to reach their agreements.
Specific details regarding these agreements and research on other agreements are
shown as Attachment 2.
Process Recommendation for the City of Dubuque
Based on my research and analysis, it is clear that the City of Dubuque needs to
encourage and support the development of a long range strategic plan for land use in
Dubuque County. In addition, we need to take the lead on the development of a fringe
area policy agreement with Dubuque County. The agreement should specifically address
the Southwest Arterial Corridor and the two mile fringe area surrounding the current City
limits. An outline of a process that could be utilized in shown on the following page.
4
6,
7.
8.
9.
10.
11.
12.
1.
Planning Services staff receives approval from the City Manager and City
Council to pursue the development of a fringe area policy agreement with
Dubuque County. Staff should also keep in contact with ECIA regarding the
status of the county's land use planning grant.
The City of Dubuque establishes a working group to develop a draft model
fringe policy agreement and land use map. The working group would also
keep abreast of pertinent legislative issues and the county's grant
application. Options for the makeup of the working group include:
the Long Range Planning Commission,
a subcommittee of the Long Range Planning Commission and
appropriate City staff, or;
a subcommittee of the Long Range Planning Commission and the
Zoning Commission.
Formally notify Dubuque County of our desire to develop a long range
strategic plan for land use and development in Dubuque County and fringe
area policy agreement(s).
Hold an informational meeting for the Dubuque City Council, relevant city
boards, County Board of Supervisors and appropriate individuals from other
municipalities.
Form a committee comprised of city and county officials to draft a long
range land use plan and model fringe area agreement. The committee
makeup could be the entire City Long Range Planning Commission and the
County Planning and Zoning Commission 'or a subcommittee from each
commission. Members from the City Zoning Advisory Commission could
also be included on the subcommittee.
Committee meetings take place with assistance from city and possibly
county staff.
Present draft agreement and land use plan to the City Council and Board of
Supervisors for approval.
Prepare and hold public hearings through the City Council and Board of
Supervisors.
Finalize agreements through the established committee.
Present finalized agreements to the City Council and Board of Supervisors
for approval and signatures.
Implement agreement by incorporating information into city and county
policies and procedures.
Reconvene ad hoc committee as needed.
2.
3.
4,
5.
5
Attachment 1
Pre-A. .Iication - Rural/Community Planning and Development Fund
Project Information
1. EligilDeb\anü6mtntv
Please include
your area code!
(Mu" be city, county or COG)
Contact person: lan Hess, Administrative Assistant
Mailing address: Courthouse
City, state, zip: Dubuque, Iowa 52001
Phone: 319-589-4441
Fax: 319-589-4478
Email:
Name: Larrv2NaPlwiAl$ßantái!irector
Mailing address: ECIA, Box 1140
City, state, zip: Dubuque, Iowa 52004-1140
Phone: 319-556-4166
Fax: 319-556-0348
Emai1: lnagle@ecia.org
PIl!flSe Include
your area code!
3. Issue area to be addressed: (Check all that apply)
~
Organizational development
Leadership development
Governmental services (to enhance economic deveiopment potential)
Housing (for assessments or pre-development assistance only)
Workforce
Tourism
Commercial development
'"".ri,' '",""rne"
"'"'ti09 '",.pm,,'
Multi-community land use planning
Local community betterment
Project development (related to an economic development initiative or opportunity)
0'""'. D~,"'"
4. List communities and their population included in the project area:
pwm-a rtlnlCQr
I po']
D.b.,., CO.Oty'~44~
Pwm-artinleQr
rl
,"Olp. Pwm-artlnlCQ'r
r""l
8
5. Grant requested (maximum allowed is $50,000 over a three-year period):$40.000
Local cash (minimum 25%): $20.000
In-kind match (minimum 25%):$ -0-
TOTAL PROJECT: $60.000
Refer 10 Ihe suggesled
amounts In guidelines
9
Pre-A. .Iication - Rural/Community Planning and Development Fund, continued
6. Project time frame (not to exceed three years):7/1 /00
6/30/03
Start Date
Completion Date
7. List the person(s) or organizations that have assisted the applicant in the development of
this proposal:
The application has been prepared at the direction of the Dubuque County Board of
Supervisors, and the Dubuque County Planning and Zoning Commission. It is supported by the
other local governments in the County.
8. State the need for the project - no more than 150 words or the space provided.
This project is needed in response to significant residential, commercial, and industrial growth
that has occurred during the 1990s and the impact that growth has had on unincorporated areas
of the County. This growth has demonstrated a need to examine growth issues related "urban
sprawl" and to the use ofland and the provision of services to developing areas. A land use
survey done for the Iowa Department of Economic Development had several significant
findings:
1. The City of Dubuque has annexed approximately 1000 acres ofland since 1997
primarily to accommodate industrial growth. Recently concern has been expressed at the
City Council level about the need for additional land to deal with the need for residential
development.
2. The City of Asburv. adjacent to the City of Dubuque, has annexed approximate
1000 acres of land since 1997 primarily to accommodate residential development.
3. The City of Peosta, located about 10 miles west of Dubuque, has
grown from a population of 57 in 1970 to an estimated 400 in 1996. This growth is
stimulated by residential development on the city's north and east sides.
4. The City of Epworth is locate west of Dubuque along Highway 20 and is starting to face
residential development pressures on the eastern boundary.
5. The City of Farlev has seen new residential and industrial development occur south and
west of the City, adjacent Highway 20, on previously undeveloped land.
6. The City of Dversville is experiencing residential growth in an unincorporated area east
of the City near a golf course.
7. Dubuque Countv is experiencing significant residential growth in unincorporated areas.
From 1993 through 1998, there were 556 residential units built in the County compared to
1209 in cities (663 in Dubuque and 546 in all other cities). The trend is continuing and in
1997 and 1998 there were more units built in unincorporated areas than the City of
Dubuque: 164 in the County, 145 in Dubuque and 188 in all other cities.
10
9. What is the objective/goal(s) of this proposal as it relates to the stated need - no more than
150 words or the space provided.
I.
INVENTORY AND ASSESSMENT OF EXISTING CONDITIONS
ECIA staff will assess the existing situation by completing the following tasks:
. Review the existing general land uses in the County unincorporated area
. Review the changes in land use for consistency with the County's existing Comprehensive Plan.
. Review and assess the current County zoning including a review of zoning changes since 1990
and building pennit inventory infonnation.
This review will be based upon infonnation and maps provided by the County. The completed
review will be presented as a summary report to the Zoning Commission.
II.
POPULATION PROJECTIONS; ANALYSIS OF FUTURE LAND USE NEEDS
ECIA will provide data concerning historical population and employment trends and reach
consensus with the Zoning Commission on population projections to 2020. ECIA will also review
County maps, city annexation plans and related statistics to detennine future land use needs in the
unincorporated area.
III. DEVELOPMENT CONSENSUS ON GENERAL LAND USE OBJECTIVES AND
POLICIES
ECIA will work with the Zoning Commission in developing and reaching a consensus on general
land use objectives and policies that are proposed for the revised Comprehensive Plan.
IV.
PRODUCT: FUTURE LAND USE PLAN AND MAP
Following completion of Sections I - III, ECIA will work with the Zoning Commission to prepare
an updated Dubuque County Future Land Use Plan and Map (Comprehensive Plan), including
general recommendations for changes to the existing zoning ordinance and zoning map, suitable for
presentation to the Board of Supervisors and ready for adoption.
V. MEETINGS AND HEARINGS
ECIA will attend both regular and special meetings, as necessary, of the Dubuque County Zoning
Commission and with officials and citizens of cities in the County until Sections I - IV in this
Scope of Services are complete. Staff will attend meetings of the Dubuque County Board of
Supervisors as necessary and provide written progress reports to ensure communication with the
Board on the progress of the Plan and the nature of proposed changes.
At the appropriate times, staff will facilitate and help the Zoning Commission and/or Board of
Supervisors in holding public hearings on the proposed Comprehensive Plan including the General
Objectives and Policies, Future Land Use Plan, Future Land Use Map and general
recommendations for changes to the Zoning Map and Zoning Ordinance.
11
Pre-A. .lication - Rural/Community Planning and Development Fund, continued
1. If proposal includes hiring consuItant(s), please list name(s) and process used to select
consuItant(s):
The County will utilize the services of the Council of Governments. The County is a member
of the East Central Intergovernmental Association and has a long relationship with that
organization and the staff.
2. Briefly describe how the grant funds requested will be used to meet your objective and
achieve your goal(s).
The grant funds will be used for consultant (COG) expenses related to preparation of the plan
3. List other grants for which you have applied or received related to this project. (past 12
months)
None
12
Pre-A. . Ii cation - Rural/Community Planning and Development Fund, continued
4. Does your community have an economic development organization? YES / NO
If yes, please indicate if it is:
-.1L Full time with paid staff (Greater Dubuque Development Corporation)
- Volunteer group
- Involved in the proposed project (List the organization(s) involved):
5. Population:
87.806 Current
86.403 1990
+1,6%
Percentage of change (+ or-)
Comprehensive Overview of the Project Area
6. Has a Housing Needs Assessment been completed? YES / NO
If yes, indicate the date completed: The Cities of Dubuque Asbury. Epworth. Farlev WorthinQton.
Cascade. and New Vienna have completed Assessments,
7. List activities related to housing (and the source of funding such as CDBG, HOME, LHAP, HEZ.
HAF, Private. etc.) that are occurring in the project area.
None of these projects are occurring in the project area, However, the County and the Cities have
traditionally been supportive of housing for low income person, All have or are members of housing
authorities and most have utilized the funding programs mentioned above. Currently, Epworth, Farley,
and Worthington are implementing housing rehabilitation programs using CDBG funds.
17. Indicate the availability and condition of the infrastructure in the project area: This question is not
applicable to this application
Availabilitv
- Adequate
- Inadequate
- Under construction
- In planning/development stages
- In discussion stages
Condition
- Excellent
- Good
_Fair
_Poor
18. Has a comprehensive plan or community builder plan been completed? YES / NO
If yes, indicate the date completed or last updated: Dubuque County completed a Comm, Builder Plan
in 1992 and 1997,
19. Is the community (or communities) in the project area certified in the Community Economic
Preparedness Program? YES / NO This question is not applicable to this application
If yes. indicate in which area(s):
- Industrial
- Commercial
- Tourism
- STARS Community
13
20. Does the community (or communities) in the project area participate in the Main Street Iowa
program? YES I NO
This question is not applicable to this application
21. Have studies or plans been conducted to date that support the need for this project? YES I NO
(do not attach to this pre-appiication)
This question does not apply to this application
14
Pre-A. .Iication - Rural/Community Planning and Development Fund, continued
22. Is this proposal consistent with existing plans? YES / NO
Briefly explain why or why not.
This question does not apply to this application
23. Does this project contribute to wise land use, including redevelopment of downtown and vacant
"infill" sites and buildings, and avoid unnecessary consumption of agricultural land? YES / NO Briefly
explain,
This project directly contributes to wise land use planning by identifying appropriate growth
areas and the policies that implement such growth,
24. List new business/industry or expansions of existing business/industry in the past five years (in
project area).
See question #8
25. Do you have the resources to support the project, or plans to address them? Check all that
apply.
----.LCommitments from the partners critical to the project have been received in writing,
_Financial commitment for additional staff person (if requested) has been secured to sustain the
position,
_Workforce (skilled/unskilled) is availabie or being recruited,
_Housing is available to support recruited workforce or new/expanding business and industry,
_Daycare and other services are accessible to workforce.
_Financial commitments have been received from the partners in the project.
15
_Commitment from the community has been received and documented,
_Office space, phone, fax. computer, and other administrative support has been secured.
_Other agencies (state, private, etc.) as needed. are committed and letters of support are in hand,
16
Attachment 2
CITY OF DUBUQUE, IOWA
MEMORANDUM
August 31,1999
TO:
Laura Carstens, Planning Services Manager
FROM:
Kyle Kroner, Assistant Planner
SUBJECT: 28E Extraterritorial Agreement Research
This memo is to respond to your request to compile a report on 28E extraterritorial
agreements between municipalities and their associated counties.
Chapter 28E of the Code of Iowa permits state and local governments in Iowa to make
efficient use of their powers by enabling them to provide joint services and facilities with
other agencies and to co-operate in other ways of mutual advantage. Expanded
zoning, subdivision, and infrastructure regulations are considered services that fall
under this chapter.
The City of Dubuque may find it desirable to enter into such a 28E extraterritorial
agreement(s) with Dubuque County for a number of reasons. A 28E agreement may
allow the City of Dubuque to exercise zoning control and subdivision review in areas
where it finds it necessary to dictate future land use. Examples of such cases include
preserving a corridor for the future extension of the Southwest Arterial and controlling
unregulated housing development (urban sprawl) on the fringes of the city, The City
has had only joint subdivision review within its two-mile extraterritorial limits. The City
has zoning and site development control only within its corporate boundaries.
The City of Dubuque's 1995 Comprehensive Plan includes land use and urban design
goals and objectives that speak to the need to encourage city-county cooperation to
develop policies for development of fringe areas, to enhance development, and to avoid
unregulated sprawl.
The following 28E agreements were reviewed for this report:
Two-Mile Area Policy Agreement: Bremer County and the City of Waverly
Fringe Area Policy Agreement: Johnson County and the City of Iowa City
Zoning Authority Agreement: Carroll County and the City of Manning
Floodplain Enforcement Agreement: Scott County and the City of Riverdale
Floodplain Enforcement Agreement: Scott County and the City of Donahue
Planning Services Agreement: Johnson County, Johnson County Council of
Governments, and the City of Iowa City.
Memo to Laura Carstens
28E Agreements
August 31,1999
Page 2
Two-Mile Area Policy Agreement: Bremer County and the City of Waverly
The Two-Mile Area Policy Agreement between Bremer County and the City of Waverly
establishes development policies and implementation measures regarding annexation,
zoning, and subdivision review for various geographically designated areas within the
City of Waverly's two-mile extraterritorial jurisdiction outside of its corporate limits. The
agreement designates 3 specific development areas, each with its own development
policies and targeted land uses.
Zoning regulation for all of the unincorporated areas, including the City of Waverly's
two-mile jurisdiction, remains under the authority of the Bremer County Zoning
Ordinance. Each request for rezoning property within specified areas of the agreement
are forwarded to the City for comment prior to a public hearing by the County Planning
and Zoning Commission. Any zoning change must conform with the policies identified
for the area in which the requested change is located.
Subdivision of land within the two-mile jurisdiction of the City is regulated in accordance
with the area policies specified in the agreement. One area requires City design
standards and requests are forwarded to the County for comment prior to public
hearing. One area requires concurrent review by both the City and County, and design
standards are determined by a cooperative process. The County has sole review of
subdivisions in the last area, and each request is forwarded to the City for comment
prior to a public hearing.
The City of Waverly is required to annex territory within one area at the time of
subdivision and extension of municipal services. The two remaining areas are not
required to be annexed in accordance with this agreement.
Fringe Area Policy Agreement: Johnson County and the City of Iowa City
The Fringe Area Policy Agreement between Johnson County and the City of Iowa City
established development policies regarding annexation, zoning, and subdivision review
for the Iowa City fringe area. The agreement designates certain fringe areas as
determined by the City of Iowa City Land Use Plan.
The first fringe area permits residential development by considering, on a case by case
basis, proposals to rezone the land in this area to allow one dwelling unit per three
acres. If the City annexes land in this fringe area, the City has agreed not to
automatically extend its fringe area authority to review and approve all subdivisions.
The City will review the extension of its fringe area on a case-by-case basis in
consultation with the County.
Memo to Laura Carstens
28E Agreements
August31,1999
Page 3
Rural subdivisions within the second fringe area are required to meet City urban design
standards, as it is an area of high annexation potential. Developments approved prior
to annexation are required to be served by packag.e sanitary sewer treatmF>"t plants
and common wells constructerl to City standards so that they can be connected to
municipal systems upon annexation. The City gives favorable consideration to
voluntary annexation of this land and its development at an urban density in this area.
Prior to its annexation, any zoning changes must be consistent with the City's Land Use
Plan.
Land in the last growth area that is Rresently zoned for residential development may
develop in conformance with existing zoning, provided subdivisions conform to City
urban design standards. It is consistent with the purpose of the aç¡reement not to
aDDrove commercial and industrial aevelopments within tnis area prior to annexation,
The City will give favorable conSlaeratlon to annexation of ttJis land ahd its aévelopmént
for commercial and industrial uses consistent with urban development patterns.
The Johnson County Zoning Ordinance retains zoning control over all unincorporated
territory. The County will forward each request for rezoning of property within the fringe
areas specified in the agreement for review and comment by the City of Iowa City prior
to public hearing. Any changes must conform with the policies identified for the area in
which the property is located.
Subdivision of land within the fringe area will be required to conform to either City rural
design standards or City urban design standards. Applications for subdivisions are
coordinated to ensure concurrent review by both the City and County Zoning
Commissions.
The City is only able to annex land in accordance with this agreement, and upon receipt
must forward applications to the County for review and comment prior to a public
hearing.
Zoning Authority Agreement: Carroll County and the City of Manning
The Zoning Authority Agreement between Carroll County and the City of Manning
allows the City to exercise zoning jurisdiction within a designated area beyond its city
limits, increases both the City Planning and Zoning Commission and City Board of
Adjustment by two members, and surrenders the County's zoning authority within
designated areas to the newly formed boards.
The newly created boards generally have the same powers and duties as they did prior
to the agreement. The new boards now have the same legal powers in the area within
two miles of the Manning City limits that the previous boards have had within the'
Manning corporate limits. The two additional members to each board are appointed by
the Carroll Board of Supervisors and must reside within the two mile jurisdiction of the
City of Manning.
Memo to Laura Carstens
28E Agreements
August31,1999
Page 4
Floodplain Enforcement Agreements: Scott County and the Cities of Riverdale
and Donahue
The Floodplain Enforcement agreements between Scott County and the Cities of
Riverdale and Donahue delegates the duties and responsibilities of administering
floodplain regulations to the Scott County Planning and Development Department. The
Cities of Riverdale and Donahue retain full responsibility for taking the necessary legal
action to force compliance through the Riverdale and Donahue City Attorneys. Any
requests for floodplain development variations require review and determination by the
Cities respective Boards of Adjustment.
The Scott County Planning and Development Department is to establish an
administrative system of floodplain inspection and enforcement within the Cities of
Riverdale and Donahue. The Department will enforce floodplain regulations, issue
permits for all development in the floodplain, and provide reports and recommendations
to the Boards of Adjustment on proposed variances for new development in the
floodplain.
Planning Services Agreement: Johnson County, Johnson County Council of
Governments and the City of Iowa City
The Planning Services Agreement between Johnson County and the City of Iowa City
was established in order to provide staffing for the Johnson County Council of
Governments (JCCOG). All staff responsibilities, services, and duties performed by or
on behalf of the Johnson County Council of Governments are performed solely by
employees of the City or County.
The City of Iowa City provides part-time services for a Planning and Program
Development Director, who serves as the Director of JCCOG staff. All costs for this
position is paid by the City. The City also provides full-time services of a Transportation
Planner and an Assistant Transportation Planner, and the part-time services of a
Technical Assistant, Community Assistance Coordinator, and Human Services Planner.
All of these positions are paid for through JCCOG accounts.
Johnson County provides the services of a Senior Planner to serve as the Division
Head of the Rural Planning Division. The Senior Planner is a County Employee and all
associated costs are paid by the County.
Attachments
KK/mkr
Appendix C
, .
.~
.'. ,
Prepered by:
.¡'-STAr
K8rin Frenklin. PCD Director. 410 E. W..hington St., low. City, ~A 52240 (31~1 356-5£32
.... i
RESOLUTION NO. 96-239 '--' ", 1158 4N '96
RESOLUTION AUTHORIZING THE MAYOR TO SIGN AND THE CITY CLERK TO
ATTEST AN AGREEMENT BETWEEN JOHNSON COUNTY. IOWA AND IOWA
CITY. IOWA. ESTABLISHING POLICIES FOR DEVELOPMENT OF LAND WITHIN
THE EXTRATERRITORIAL AREA OF IOWA CITY AND INCORPORATING THOSE
POLICIES INTO THE IOWA CITY COMPREHENSIVE PLAN.
WHEREAS. Chapter 28E of the Code of Iowa (1995) enables two or more local governments
to enter into agreements to cooperate for their mutual advantage; and. .
WHEREAS. the Development Policy for Rural Johnson County adopted. January 1979. calls
for the preparation and adoption of development plans and agreements between the County
and the City regarding the municipality and its environment; and .
WHEREAS. the Iowa City Comprehensive Plan Update adopted in January 1989. and amended
through March 1993, outlines the extent of urban development expected within the next 20
years and outlines land use policies for Iowa City; and
WHEREAS, it is in the interest of Johnson County and the City of Iowa City to establish
policies for the orderly growth and development within the City's extraterritorial jurisdiction;
and
WHEREAS. Johnson County and the City of Iowa City mutually agree that such policies are
necessary to more effectively and economically provide services for future growth and
development and to protect and preserve the extraterritorial area's natural resources and its
environmentally sensitive features.
I
NOW, THEREFORE, BE IT RESOLVED THAT:
1.
The City Council of the City of Iowa City, Iowa hereby accepts and agrees to the
policies regarding annexation. zoning and subdivision review for the various designated
areas included in the attached Fringe Area Policy Agreement between Johnson County.
Iowa and Iowa City, Iowa; and
2.
The City Council of the City of Iowa City hereby incorporates the Fringe Area Policy
Agreement into the Iowa City Comprehensive Plan; and
3,
The City Council of the City of Iowa City, Iowa hereby authorizes the Mayor to sign
and the City Clerk to attest to the attached 28E Agreement between Johnson County
and Iowa City establishing land use policies for the two-mile extraterritorial jurisdiction
of Iowa City, for recordation as provided by law.
Resolution No.
Page 2
96-239
Passed and approved this
6th
ATTEST: ~~ ,f". .¡¿~
CI CLERK
day of
AuQust
,1996.
~J.~
MAYOR (I
Approved b,,\ .
~ /? WHZð
CI Attorney's Office cf'-I-t-,;
It was moved by Nnrtnn and seconded by
adopted, and upon roll call there were:
Thnrnh..rry
the Resolution be
AYES:
x
X
,-
-.:t-
~.
-L...
ppdadmin\2mileic.res
NAYS:
ABSENT:
Baker
- Kubby
----x- Lehman
- Norton
- Novick
- Thornberry
== Vanderhoef
(
<-
l
FRINGE AREA POLICY AGREEMENT
BETWEEN JOHNSON COUNTY AND IOWA CITY
WHEREAS, Chapter 354. Code of Iowa (1995) allows the City of Iowa City to establish an
extraterritorial area. known as the fringe area, within two miles of the city boundaries for the
purpose of reviewing and approving subdivisions; and
WHEREAS, Chapter 354 further grants the City the authority to require that subdivisions
within the fringe area adhere to the City's subdivision standards and conditions, unless the
City establishes alternative standards and conditions for review and approval of subdivisions
via a 2BE agreement between the City and the County; and
WHEREAS. Chapter 2BE of the Code of Iowa (1995) enables two or more local governments
to enter into agreements to cooperate for their mutual advantage; and
WHEREAS, the Development Policy for Rural Johnson County adopted January, 1979, calls
for the preparation and adoption of development plans and agreements between the County
and the City regarding the municipality and its environment; and . .
WHEREAS. the Iowa City Comprehensive Plan Update adopted in January, 1989, and
amended through March, 1993, outlines the extent of urban development expected within the
next 20 years; and
WHEREAS, it is in the interest of Johnson County and the City of Iowa City to establish
policies for the orderly growth and development within the City's fringe area; and'
WHEREAS. Johnson County and the City of Iowa City mutually agree that such policies are
necessary to more effectively and economically provide services for future growth and
development and to protect and preserve the fringe area's natural resources and its
environmentally sensitive features.
NOW, THEREFORE, THE PARTIES AGREE AS FOLLOWS:
SECTION I. FRINGE AREA DEVELOPMENT POLICIES
The parties accept and agree to the following development policies regarding annexation.
zoning, and subdivision review for the Iowa City fringe area as authorized by Chapter 354,
Code of Iowa (1995).
Purpose:
The Fringe Area Policy Agreement is intended to provide for orderly and efficient development
patterns appropriate to a non-urbanized area. protect and preserve the fringe area's natural
resources and environmentally sensitive features. direct development to areas with physical
characteristics which can accommodate development, and effectively and economically
provide services for future growth and development.
In light of these objectives. the City and the County examined the development capabilities
of the Iowa City fringe area and determined that development within this fringe area is to
occur in accordance with a) the Land Use Plan attached to this Agreement, bl development
standards contained in Section B of this agreement, and c) the fringe area development
policies contained in Section C of this Agreement.
A.
- 2-
Land Use Plan
The Land Use Plan, attached to this Agreement as Attachment 1, illustrates the land use
patterns for the fringe area.
(
B.
Development Standards
The following standards apply to unincorporated development in the fringe area.
..3.
c.
1.
Discourage development in areas which conflict with the Johnson County
Comprehensive Plan which considers CSR (Corn Suitability Rating), high water
table, wetlands, floodplain. non-erodible soil, and road suitability.
2.
Protect the public health by requiring developers to meet or exceed minimum
standards for water and wastewater systems in all developments within the Iowa
City Fringe Area pursuant to Johnson County Public Health Department
Regulations.
Encourage cluster development which preserves large tracts of open space
iriéluding environmentally sensitive areas and farm land. results in compact
development which requires less infrastructure, and is more efficient for provision
of services.
Fringe Area Development Policies
The parties agree to apply the following fringe area develop'mënt policies.
(
FRINGE AREA A
1.
Permit residential development by considering, on a case-by-case basis, proposals
to rezone land in this area to RS-3 (one dwelling unit per three acres of lot area).
RS zoning will be considered if the application to rezone includes a plat showing
a minimum of 50% of the property as an outlot designated as open space or
agriculture. Development must comply with City Rural Design standards contained
,in Appendix A.
2.
If land is annexed within Fringe Area A, the City agrees that it will not
automatically extend its fringe area authority to review and approve all
subdivisions, which it exercises pursuant to Iowa Code §354.9 and Title 14,
Chapter 7 of the City Code of the City of Iowa City, Iowa. The City will review
the extension of its fringe area as a result of annexation on a case-by-case basis
in consultation with Johnson County.
FRINGE AREA B
As set forth in Iowa City's adopted growth policy, the City will likely annex land within
one mile of Iowa City to the east and within two miles of Iowa City to the south in the
short-range. It is therefore consistent with the purpose of this agreement that rural
subdivisions within these areas of high annexation potential be required to meet City
Urban Design Standards contained in Appendix A.
<-
1.
Land within Iowa Citv's Growth Area. As applications are received to develop land.
contiguous to and within the growth limits of the city. the City will give favorable
- 3-
consideration to the voluntary annexation of this land and its development at an
urban density in conformance with the City's adopted land use plan for Fringe Area
B (Attachment 2). Prior to annexation. any zoning changes in Iowa City's
projected growth area shall also be consistent with the City's adopted land use
plan for Fringe Area B.
Subdivisions within Iowa City's projected growth area shall conform to City Urban
Design Standards contained in Title 14. Chapter 7 of the City Code of Iowa City.
including but not limited to City specifications for streets and roads, sanitary sewer
lines, storm water management facilities and water lines. Developments which are
approved prior to annexation shall be required to be served by a package sanitary
sewage treatment plant and common wells with sanitary sewer and water
collection and distribution systems which are constructed to City standards and
can be connected to municipal systems upon annexation.
Subdivisions which are approved prior to annexation shall be required to be cluster
developments with a minimum of 50% of the development designated as an outlot
for open space. agriculture, or future development upon annexation.
2.
Land outside Iowa Citv's Growth Area. On the balance of land in Area B that lies
outside Iowa City's projected growth area, agricultural uses are preferred.
However, consideration will be given to applications for single-family residential
development at a density of RS-10 (1 dwelling unit/10 acres). This development
must conform to Rural Design Standards. .
3.
Upon annexation of land within Fringe Area B, the City agrees that it will not
automatically extend, . 'its fringe area authority to review and approve all
subdivisions, which it exercises pursuant to Iowa Code §354.9 and Title 14,
Chapter 7 of the City Code of the City of Iowa City, Iowa. The City will review
the extension of its fringe area as a result of annexation on a case-by-case basis
in consultation with Johnson County.
FRINGE AREA C
1.
Land within Iowa Citv's Growth Area. Land in Area C which is presently zoned for
residential development, and within Iowa City's growth area, may develop in
conformance with existing zoning, provided subdivisions shall conform to City
Urban Design standards contained in Title 14, Chapter 7 of the City Code of Iowa
City, including but not limited to City specifications for streets and roads, sanitary
sewer lines, storm water management facilities and water lines. Developments
which are approved prior to annexation shall be required to be served by a package
sanitary sewage treatment plant and common wells with sanitary sewer and water
collection and distribution systems which are constructed to City standards and
can be connected to municipal systems upon annexation.
Subdivisions which are approved prior to annexation shall be required to be cluster
developments with a minimum of 50% of the development designated as an outlot
for open space, agriculture, or future development upon annexation.
Upon annexation to Iowa City, commercial and/or industrial development is
encouraged in the portion of Section 20 of West Lucas Township that is located
in the east and south quadrants of the Highway 1 and Highway 218 interchange.
It is consistent with the purpose of this agreement not to approve commercial
.4.
and/or industrial developments within this area prior to annexation. As stated in
the Johnson County Rural Development Plan, commercial and/or industrial
development will be encouraged to locate in the interchanges of paved roads.
Commercial and/or industrial development will be discouraged in all other areas of
Fringe Area C.
As applications are received to develop land contiguous to Iowa City and within
this portion of the City's growth area, the City will give favorable consideration to
the voluntary annexation of this land and its development for commercial and/or
industrial uses consistent with urban development patterns.
2.
Land outside Iowa CitY's Growth Arell. In the portions of Area C which lire not
within Iowa City's growth area IInd which are zoned for non-farm development,
development may occur in conformance with Johnson County's Zoning Ordinance
and City Rural Design Standards.
The land in Area C currently zoned A-1, Rural, and outside the City's growth area
will be considered, upon receipt of IIn application, for rezoning to. RS-1 0 (1
dwelling unit/10 acres). RS-5 (1 dwelling unit/5 acres) will be considered if the
application to rezone includes a plat designllting a minimum of BO% of the property
as an outlot for open splice or agriculture.
Rural Design Standards willllpply to 1111 development outside the City's growth
area.
3.
Upon annexation of land within Fringe Area C, the City agrees that it will not
automatically extend,.'its fringe area authority to review and approve all
subdivisions, which it exercises pursuant to Iowa Code §354.9 and Title 14,
Chapter 7 of the City Code of the City of Iowa City, Iowa. The City will review
the extension of its fringe area as a result of annexation on a case-by-case basis
in consultation with Johnson County.
SECTION II. PROTECTING AGRICULTURAL OPERATIONS
Any regulations in the Fringe Area Agreement will not interfere with the Right to Farm, as
contained in the Code of Iowa Chapter 335.2, Farms Exempt; and as noted in the Johnson
County Zoning Ordinance, Chapter B.2, Protecting Agricultural Operations.
SECTION 111. ADMINISTRATIVE POLICIES
As a rule. zoning regulation is the county's prerogative if a county has adopted a zoning
ordinance. The City, however, exercises authority over subdivision regulation in a city's fringe
area. Annexation is also primarily under exclusive rule of cities. Each of these activities,
however, affects both jurisdictions and produces a clear need for coordination and joint
administration. To that end, the City of Iowa City and Johnson County agree to the following
procedures for administration of land use regulations.
A.
Zonina Reaulation:
1.
Zoning regulation for all unincorporated territory will remain under the authority of
the Johnson County Zoning Ordinance and the provisions of Chapter 335, Code
of Iowa (19951. the enabling legislation for the County's zoning powers.
f
(
<--
B.
C.
- 5-
2.
Pursuant to Section' 8: 1.30 of the Johnson County Zoning Ordinance, any person
may request a veriance to the lot area regulations of the zoning ordinance or appeal
the decision of any officer of the County as that decision relates to enforcement
of the Zoning Ordinance.
3.
The County will forward each request for rezoning of property within the Fringe
Areas specified in this Agreement to the City for review and comment prior to the
public hearing before the County Planning and Zoning Commission. Any zoning
change will conform with the policies identified for the Area in which the property
is located.
4.
Properties zoned for a classification which is inconsistent with this Agreement, at
the time this Agreement is executed, shall retain the rights under that zoning,
unless and until such zoning is changed through due process.
Subdivision ReQulation:
1.
Subdivision of land within Iowa City's fringe area will be required to conform to
either City Rural Design Standards or the City Urban Design Standards in
accordance with the policies specified in this Agreement.
2.
Persons wishing to subdivide land within the fringe area specified in this
Agreement shall be required to simultaneously file a subdivision application with
both the City and the County. The City and the County shall coordinate the
processing of the application to ensure concurrent review by both the City Planning
and Zoning Commission and the County Planning and Zoning Commission.
3.
Subdivisions of land into less than three lots will continue to be regulated by the
County.
Annexation:
1.
Iowa City will annex territory only in accordance with the policy statements
specified in this Agreement.
2.
The City will, upon receipt, forward applications requesting annexation or
severance (deannexation) of property within the fringe area specified in this
Agreement to the County for review and comment prior to consideration by the
Iowa City Planning and Zoning Commission.
3.
As appropriate and necessary, the City may extend the two-mile extraterritorial
subdivision plat review area. Prior to any such extension, the City will forward to
the County a proposal which includes the extension of the City's plat review
authority for any distance up to the two mile limit provided by State law. The
County will have a specified time within which to respond in affirmative
agreement, negatively or with an alternative proposal. The City will take the
County's response under advisement when determining the extension of
extraterritorial review.
- 6-
SECTION IV. AGREEMENT R'EV1EW
At any time during the three (3) year term of this Agreement, either the Chair of the Johnson
County Board of Supervisors or the Mayor of the City of Iowa City may initiate review of the
policies of this Agreement by contacting the other party to this Agreement. Both parties to
this Agreement shall consider modifications of this Agreement, as appropriate.
(
SECTION V. EFFECTIVE PERIOD
This Agreement shall become effective upon acceptance and execution by the parties, and
shall be in effect for three (3) years after the date of execUtion of this Agreement. This
-Agreement may be modified and extended by the written mUtual consent of the parties.
-SECTION VI. RECOROATION
This Agreement shall be filed with the Secretary of the State of Iowa, and with the Johnson
County Recorder in compliance with Chapter 28E, Code of Iowa (1995).
~'
Dated this L- day of ;..~"../.~'--;7' , 1996.
Attest: -/- <...
County Auditor
APP~ by:
\... ~l ~
C "- ff'
ount\' Attorney's 0 Ice
(
Dated this ~ day of
AuQust
,1996.
CITY OF IOWA CITY
By: Mayor fu-: J r~
Attest: /'J¡~ ~ ~
~rk
tJ~
ATTACHMENTS:
1.
2.
3.
Proposed Land Use Map for the Iowa City Fringe Area.
Figure 1: Fringe Area B (formerly Areas 5 and 6) Land Use Plan.
Appendix A: Definition of Standards
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CITY OF DUBUQUE, IOWA
MEMORANDUM
March 10, 2000
TO:
Michael C, Van Milligen, City Manager
FROM:
Laura Carstens, Planning Services Manager~
SUBJECT: Comprehensive Plan Update and Related Planning Efforts; Proposed
Process for 28E Agreement for Fringe Area Growth and Development
Attached as you requested is the information that I have distributed to the Long Range
Planning Advisory Commission regarding the process for the 2000 update of the
Comprehensive Plan and related planning efforts. Also enclosed is a proposed process
for developing a 28E agreement with Dubuque County for fringe area growth and
development.
This information has been sent to the Long Range Planning Advisory Commission for their
review and discussion at their March 15, 2000 meeting, I anticipate that the Commission
subsequently will transmit a recommendation to the City Council on these topics,
Please let me know if you have any questions or need additional information.
Attachment
cc
Tim Moerman, Assistant City Manager
Jim Burke, Community and Economic Development Director
~
CITY OF DUBUQUE, IOWA
MEMORANDUM
March 7, 2000
TO:
Long Range Planning Advisory Commission
FROM:
Laura Carstens, Planning Services Manager ~
SUBJECT: Comprehensive Plan Update and Related Planning Efforts
INTRODUCTION
This memo transmits information developed by the Planning Services staff and the Long
Range Planning Advisory Commission for the 2000 update of the 1994 -1995 Dubuque
Comprehensive Plan. This memo also transmits information developed by the Planning
Services staff for the related planning efforts that the Commission would like to undertake.
BACKGROUND
Phase 1 of the Comprehensive Plan included the policy statements and 120 goals for the
14 elements of the plan. Phase 2 of the Comprehensive Plan, adopted in 1995, included
the land use, transportation and utilities systems map and the objectives for the goals. In
1996, the Planning Commission began work on an evaluation process for the Plan.
In 1997, the Commission presented the Citizen's Guide, the poster-size systems map, the
Comp Plan video and an evaluation form to the City Council (see attachment). In 1997-
1998, the Commission and Planning Services staff undertook a public relations program
to introduce the community to the plan. We also undertook an evaluation process, using
the evaluation form with City departments and key stakeholders in the community. The
evaluation process was not successful.
In addition, Planning Services staff and Yaggy Colby Associates prepared an Annexation
Analysis in 1996 -1998. The Planning Commission assisted with land use planning in 2
of the 14 annexation study areas that lay outside the boundaries of the Comp Plan's 38
potential growth areas.
Comp Plan Update
page 2
DISCUSSION
In 1999 and 2000, the Commission has discussed ways to update the Comprehensive
Plan. Below is a draft process developed by the Commission and Planning Services staff
for an update of the Comp Plan in 2000.
1.
Land Use, Transportation and Utilities Systems Map
Prior to development of the systems map for the Comprehensive Plan, Planning Services
staff conducted a land use inventory and prepared a Development Needs Study. Adopted
in 1 995 as Phase 2 of the Comp Plan, the systems map depicts land use, transportation
and utilities (City water and sewer).
The transportation systems shown on the Comp Plan map were drawn largely from a
coordinated planning effort with the Dubuque Metropolitan Area Transportation Study
(DMATS). DMATS is updating their Long Range Transportation Plan for 2020 this year.
The DMATS update is scheduled for completion in August, 2000. The Iowa Department
ofTransportation (lOOT) has a number of transportation studies underway for the Dubuque
area at this time as well. Staff recommends that the Commission link with the DMA TS and
IDOT transportation planning efforts in updating the Comp Plan and the system map.
The 1996 -1 998 Annexation Analysis builds on the systems map, and provides a great deal
of information about City water and sanitary sewer services. This year, the City has begun
a comprehensive storm water management study. Since storm water is similar to a City
utility, and since storm water management practices can affect land area requirements for
detention basins and impact downstream development, staff recommends that the updated
systems map include storm water management.
A.
Land Use Inventorv
In 1990, Planning Services staff inventoried land use in the entire community, and in the
38 identified growth areas in the urban fringe. This inventory would be updated in 2000.
The product would be used to prepare a systems base map for the updated Comp Plan.
The land use inventory would include the land within the city limits, as well as land included
in the Annexation Analysis and within 2 miles of Dubuque's corporate limits.
The Commission's role would be to review the results of the data collection effort, and
provide recommendations on the presentation format.
~
Comp Plan Update
page 3
Time frame:
Research and update land use data base: May - July, 2000
Produce systems base map: May - July, 2000
Present systems base map to City Manager and Commission: AugusUSeptember, 2000
Present systems base map to Council: September/October, 2000
B.
Development Needs Studv
In 1993 - 1994, Planning Services staff prepared a Development Needs Study that
identified the needed reserves for 5 major land uses: single-family residential, multi-family
residential, commercial, industrial and park/open space. In 2000, this study would be
updated by staffto evaluate our progress, current conditions and expected trends. It would
include all the areas mapped for the 2000 land use inventory.
The Commission's role would be to review the results of the Development Needs Study
update, and recommend any necessary revisions.
Time frame:
Research and update Development Needs Study: March - July, 2000
Present Development Needs Study to City Manager and Commission: July/August, 2000
Present Development Needs Study update to Council: AugusUSeptember, 2000
C.
Land Use MaD UDdate
Initially, the Commission and staff would look at the 38 identified growth areas and the
annexed areas, and identify new growth areas, such as along the Phase IV of the
Northwest Arterial, John F. Kennedy Road from the Northwest Arterial north to the city
limits, and the Southwest Arterial and Highway 20 corridors. The Commission and staff
would refine the perimeter of the Comp Plan's land use map, as well as the suggested
future land uses.
Stakeholders, such as the Chamber of Commerce, Greater Dubuque Development
Corporation, Dubuque Area Homebuilders Association, Zoning Advisory Commission,
Developers' Roundtable and key City departments would be invited to provide their input.
Possible venues include a panel discussion or workshop similar to those held in the early
1990's for preparation of the Comp Plan. Then the Commission would publish the draft
document in the local newspaper or some other format, and make it available at the Public
Library, to solicit public comment.
Comp Plan Update
page 4
The Commission would review the input received, and then further refine the land use map
before submitting their recommendations to the City Council. In addition, the Commission
would develop, test and then recommend a process for the periodic updating of the land
use map on a 1 to 2 year schedule.
Time frame:
Review the 38 identified growth areas and the annexed areas: May/June, 2000
Identify new growth areas: May/June, 2000
Refine the perimeter of the Comp Plan's land use map: May/June, 2000
Hold panel discussion or workshop: July/August, 2000
Publish the draft map in the local newspaper: AugusUSeptember, 2000
Develop a process for 1 - 2 year update of the land use map: July/August, 2000
Have draft map available at the Public Library: AugusUSeptember, 2000
Review the input received, and then further refine the land use map: September, 2000
Present draft map to City Manager and Council: October/November, 2000
Present process for 1 - 2 year update of the land use map to City Manager and Council:
October/November, 2000
2.
Comprehensive Plan Goals and Obiectives
A.
Civic Index
Prior to development of goals, objectives and systems maps for the Comprehensive Plan,
Planning Services staff collected data on for a "civic index" of existing conditions and facts,
and critical issues and trends for the Plan's 14 elements. In 1990 - 1992, staff collected
infonmation from key stakeholders, City departments, State agencies and the U.S, Census
Bureau on existing facts and conditions, and critical issues and trends. Staff will begin to
update this civic index in 2000. Where possible, we will develop trend lines, charts and
graphs of historical data. The complete update will be phased in, based on the availability
of Census 2000 data.
For the 2000 update, the Planning Services staff will research the similarity of Dubuque's
civic index to "community indicators". Community indicators are a means for local
government, business and civic leaders to assess progress and measure overall
community health and well-being. Community indicators are especially useful in measuring
the success of programs to improve the community's quality of life.
The Commission's role will be to review the results of the civic index update, and provide
recommendations on the content and presentation format.
~
Comp Plan Update
page 5
Time frame:
Research and update civic index: January, 2000 - June, 2000
Research community indicators: May, 2000 - July, 2000
Produce trend lines, charts and graphs of historical data: May, 2000 - July, 2000
Present civic index update to City Manager and Commission: August, 2000
Present civic index update to Council: September, 2000
B.
Review of Goals and Obiectives
Development of the goals and objectives for each of the Comp Plan's 14 elements
originally involved input from the key stakeholders, City departments and the general
public. The 2000 update of the Comp Plan's 120 goals and hundreds of objectives would
involve a three-track approach, with Commission members, key stakeholders and City
departments evaluating the current goals and objectives.
The Commission has agreed that all Commissioners would give a cursory review to all the
elements. Commissioners also have agreed to divide the 14 elements among themselves,
with each Commissioner taking 1 - 2 elements to review in depth and to critique for their
relevancy.
The Commission would invite key stakeholders and City departments to focus group
meetings to discuss to the relevancy of the goals and objectives for the each of the
elements. Planning staffwould prepare the results of the focus group discussions for each
element. The Commissioner who selected the element discussed during a particular focus
group session would lead the discussion of that element with the rest of the Commission.
For 4 elements, there are community planning efforts already underway that would serve
the same purpose as focus group discussions held by the Commission. These planning
efforts could stand alone or be supplemented by focus group sessions. The remaining 10
elements would be discussed in focus group meetings hosted by the Commission.
The Land Use and Urban Design Element and the Housing Element would be linked with
the systems map update described above, the related planning efforts described below,
the action plans being developed as a result of the Housing Conference held in February,
and the Consolidated Plan process presented to the Commission at the February meeting.
The Health Element would be coordinated with the community health planning currently
underway. The Transportation Element would be coordinated with the DMATS and IDOT
planning that is likewise underway.
Comp Plan Update
page 6
Focus GrouD Discussions/Coordination with Communitv Planninq Efforts. by Element:
Land Use and Urban Design:
coordinate with Land Use Map Update (described
above), Consolidated Plan update, Housing Conference
results and related planning efforts (described below);
review the FY01-FY06 Capital Improvement Program.
Time frame: April - October, 2000
Transportation:
coordinate with DMA TS update of long range transportation plan
(described in attachment) and IDOT planning in the community;
review the FY01-FY06 Capital Improvement Program.
Time frame: April - October, 2000
Infrastructure:
coordinate with Land Use Map Update (described above)and storm
water management study; review the FY01-FY06 Capital
Improvement Program.
Time frame: April - December, 2000
Environmental Quality:
hold focus group meeting(s) with key stakeholders in
community and local government.
Time frame: May - July, 2000
Economic Development:
coordinate with Land Use Map Update (described above),
Consolidated Plan update, Housing Conference results and
related planning efforts (described below); review the FY01-
FY06 Capital Improvement Program.
Time frame: April - December, 2000
City Fiscal: hold focus group meeting(s) with key stakeholders in community and local
government; consider survey in City Focus.
Time frame: May - August, 2000
Health:
Coordinate with community health planning.
Time frame: March - September, 2000
It.
Comp Plan Update
page 7
Housing:
coordinate with Land Use Map Update (described above), Consolidated Plan
update, Housing Conference results and related planning efforts (described
below); review the FY01-FY06 Capital Improvement Program.
Time frame: April - December, 2000
Human Services:
hold focus group meeting(s) with key stakeholders in community and
local government.
Time frame: October - December, 2000
Education:
hold focus group meeting(s) with key stakeholders in community and local
government.
Time frame: April - December, 2000
Recreation: hold focus group meeting(s) with key stakeholders in community and local
government; review the FY01-FY06 Capital Improvement Program.
Time frame: August - December, 2000
Cultural Resources:
hold focus group meeting(s) with key stakeholders in
community and local government; review the FY01-FY06
Capital Improvement Program.
Time frame: October - December, 2000
Public Safety.
hold focus group meeting(s) with key stakeholders in community and
local government; review the FY01-FY06 Capital Improvement
Program.
Time frame: April - September, 2000
Diversity:
hold focus group meeting(s) with key stakeholders in community and local
government.
Time frame: October - December, 2000
The Commission would bring together the results of these 3 evaluation tracks to develop
recommendations for the goals and objectives. Then, the Commission would hold public
Comp Plan Update
page 8
hearing(s) and make the draft text available to the public for review and comment, before
submitting recommendations to the City Council.
Time frame:
Compile results of the 3 evaluation tracks: May, 2000 - February, 2001
Develop recommendations for the goals and objectives: March - June, 2001
Submit draft text to City Manager and Council for initial comments: July/August, 2001
Submit draft text to key stakeholders for review and comments: September, 2001
Make the draft text available to the public for review and comments: September, 2001
Hold public hearing(s): October, 2001
Revise draft text based on public input: November, 2001
Submit recommendations to the City Manager and Council: December, 2001
3.
Related Land Use Plannina Efforts
Commissioners and Planning Services staff have identified several related planning efforts
that might be incorporated into the Comp Plan update or otherwise addressed.
A.
28E Aareements for Extraterritorial Jurisdiction
Identified in the Comp Plan and reiterated in the Annexation Analysis, Commissioners and
staff have discussed possible ways to plan cooperatively with the County and other cities
for growth and development in the fringe areas. Planning Services staff have prepared the
attached reports on 28E agreements in regard to this topic. We would like your input on
the process recommendation described in the attached memo prepared by Assistant
Planner Lisa Sesterhenn.
Time frame: coordinate with Dubuque County's planning effort.
B.
Neiahborhood Plans
The 1995 Comp Plan's land use map did not suggest future land uses for the built-up
areas of town -- only the undeveloped growth areas. The Commission would like to look
at neighborhoods in Dubuque - how they exist now, how they've been affected by change
(such as highways) and what visions can be developed for them.
This planning effort could involve staff from City departments and other Commissions with
an interest in neighborhoods. It could focus on neighborhoods with an organized
..
Comp Plan Update
page 9
neighborhood association and/or in targeted CDBG areas as a priority, and then progress
through the entire city.
The U,S. Department of Housing and Urban Development (HUD) strategy for
Neighborhood Revitalization could be a model for the Commission to use or adapt for their
neighborhood planning. A summary of this HUD strategy is attached. In May, the
Community and Economic Development Department will begin the neighborhood planning
process for areas that qualify for HUD's Neighborhood Revitalization Strategy. In addition,
the some of the action plans that result from the Housing Action Conference held on
February 11, 2000, could be incorporated into or linked with the neighborhood planning
efforts.
Time frame: coordinate with Community and Economic Development Department on
Neighborhood Revitalization Strategy.
C.
Gatewav/Corridor DesiGn Guidelines
The Commission would examine efforts in Dubuque and other cities to develop gateway
treatments and design guidelines for transportation corridors, and then evaluate options
that might be appropriate in Dubuque, The Commission would test these options with key
stakeholders, such as the Chamber, and the general public before providing
recommendations to the City Council. This effort would involve staff from other
departments, as well as community groups and organizations,
Time frame: 2001/2002
D.
Development/Redevelopment PlanninG Studv
Commissioners identified a number of separate topics that they would like to study; we
noted that these various topics could be combined in a developmenUredevelopment
planning study, The separate topics that the Commission identified were:
The Commission indicated that they would like to look at brownfield sites in Dubuque -
where they are, how they are contaminated, how they can be developed, and what
incentives the City could use to encourage development on these sites rather than fringe
development. Commissioners said that they would like to examine riverfront development
- what's planned, what's happening, and how the area may develop. Commissioners also
noted that they would like to look at infill development, to encourage growth in town and
within the existing building stock of Dubuque, and to make infill development a priority of
Comp Plan Update
page 10
the Commission and the City to address. In addition, the Commission wanted to examine
neotraditional, new urbanism, and other subdivision planning methods for directing
development in Dubuque.
The Commission, with assistance from staff, would prepare a developmenUredevelopment
planning study. The study would identify sites that are undeveloped or underdeveloped,
as well as their potential and their constraints for development or redevelopment. In
addition to brownfield sites, riverfront areas, and infill sites, the study could look at areas
with utility extensions and/or a lack of access that could become growth areas if their
potential and constraints were addressed.
Sites that would benefit from this type of planning study include: the area south of
Farmland Foods and west of U.S. 61/151; the red brick warehouse district east of
Downtown and west of U.S. 61/151; the 4th Street Peninsula; and the area south of the Ice
Harbor. This planning effort would involve staff and City Commissions from other
departments, as well as other organizations and groups in the community.
Time frame: 2001/2002
RECOMMENDATION
I recommend that Commissioners review the proposed processes and planning efforts
identified for an update of the Comprehensive Plan, and then provide direction as to how
you would like staff to work with the Commission in this effort.
I also recommend that Commissioners review the proposed processes for the related
planning efforts identified above, and then provide direction as to how you would like staff
to work with the Commission in addressing each of these issues.
Attachments
cc
Michael Van Milligen, City Manager
Lisa Sesterhenn, Assistant Planner
Tim Moerman, Assistant City Manager
Jim Burke, Community and Economic Development Director
,
oJ
Planning Services Department
50 West 13th Street
Dubuque. Iowa 52001-4864
Phone (3]9) 589-4210
THE CITY OF ~
D~
~Yk-~
August 25, 1997
The Honorable Mayor and City Council Members
City of Dubuque
City Hall - 50 W. 13th Street
Dubuque, IA 52001
RE: Comprehensive Plan Public Information Materials
Dear Mayor and City Council Members:
It is the pleasure of the Long Range Planning Advisory Commission to present the City
Council with the enclosed public information materials for the Dubuque Comprehensive
Plan:
Creating the Future: A Guide to the Dubuque Comprehensive Plan.
The Comprehensive Plan Systems Map (enclosed in the back pocket of the
citizen's guide).
The Comprehensive Plan Evaluation Form.
A short video tape introducing the Comprehensive Plan will be shown at the City
Council's September 2nd meeting.
The Commission wants to ensure that this plan remains a reflection of community
consensus and is used by community organizations in their planning efforts. To
achieve this goal, the Commission will use these public information materials in the
following efforts:
1.
The citizen's guide, systems map and videotape will be distributed to local news
media to encourage their help in "spreading the word" about the plan.
2.
The citizen's guide, systems map, video tape and evaluation form will be
distributed to the City departments and community organizations that
contributed to development of the plan. These key stakeholders will be asked
to return completed evaluation forms to the Commission.
Service
People
lnteg,itv
Respomibilitv
InnÜ"ation
Te,mwo,k
3.
An invitation will be sent to local service clubs and organizations to view the
video tape for an introduction to the Comprehensive Plan.
4.
The citizen's guide and systems map will be available in the reference section
of the Public Library. The video tape will be available for check out at the
Library, and shown on City Channel 8.
5.
The public information materials and the complete Comprehensive Plan will be
available at the Planning Service Department.
The Comprehensive Plan Evaluation Form will be used to monitor progress on
achieving the Plan's goals and objectives. The intent is to establish a process to
correlate current strategic planning at the City and in the community with the Dubuque
Comprehensive Plan. The form also is hoped to be a means to identify and evaluate
partnerships and linkages to attain the Plan's goals.
The form is to be a reporting mechanism for the Commission to chart progress on
implementation of the Comprehensive Plan:
which goals and objectives are being met by the community?
which goals and objectives are not being addressed?
are these goals and objectives still valid, or do they need revision?
Using this form, the Commission would be able to report back to the City Council
periodically on the status of the Comprehensive Plan. The Commission could identify
for the City Council portions of the plan that are working well, and portions that may
need revision.
In an effort to make this process more "user-friendly", the form coordinates with the
City's budget format. Hopefully, this revision will minimize any duplication of reporting
efforts. The form lists the Comprehensive Plan element, and then summarizes the
goals and objectives. The goals and objectives are often lengthy, so the summarized
versions will keep the form simpler and easier to use.
One version of the form will be used by City departments. A separate version of the
form has been developed for organizations/agencies responsible for Plan
implementation. Both forms are attached.
In December, the Commission will review the completed evaluation forms from City
departments and organizations. The Commission then will present these results to the
,
.;
City Manager and City Council. Through periodic evaluations, the Comprehensive Plan
will remain a viable guide for community decision-making.
The Long Range Planning Advisory Commission would like to take this opportunity to
thank the City Council, City Manager and City staff for your support in developing the
Comprehensive Plan and these public information materials. The quality of the
citizen's guide, systems map and video tape are excellent. These public information
materials will be helpful tools for introducing the Comprehensive Plan to the
community.
Thank you.
Sincerely,
L
(XxlÆtc:.-114
Anna O'Shea. Chairperson
Long Range Planning Advisory Commission
Enclosures
cc Michael Van Milligen, City Manager
Laura Carstens, Planning Services Manager
Long Range Planning Advisory Commission Members
AO/dd
DUBUQUE COMPREHENSIVE PLAN
EVALUATION FORM
(CITY DEPARTMENTS)
DEPARTMENT:
CONTACT:
PHONE:
PLAN ELEMENT: IMPLEMENTATION RELATES
BUT RESOURCES
CITY FISCAL NEEDED
GOALS AND N PROGRAM/PROJECT TITLE CIP PROJECT ESTIMATED ONGOING MONEY STAFF FACILITIES
OBJECTIVES A NO. BUDGET COMPLETION
GOAL 1: PROMOTE FISCAL
SOUNDNESS OF CITY
GOVERNMENT
1.] UPGRADE BOND RATING
1,2 MONITOR CHANGING
CONDITIONS. TRENDS AND
LEGISLATION
1.3 EVALUATE REVENUE
ALTERNATIVES TO
PROPERTY TAX
1.4 USE SOUND
PURCHASING PRACTICES
1.5 USE SOUND RISK
MANAGEMENT PRACTICES
ADDITIONAL REMARKS:
AGENCY:
DUBUQUE COMPREHENSIVE PLAN
EVALUATION FORM
(COMMUNITY AGENCIES)
...
\
CONTACT:
PHONE:
PLAN ELEMENT: IMPLEMENTATION RELATES
BUT RESOURCES
CITY FISCAL NEEDED
GOALS AND N PROGRAM/PROJECT TiTlE PROJECT ESTIMATED ONGOING MONEY STAFF FACILITIES
OBJECTIVES A BUDGET COMPLETION
GOAL]: PROMOTE FISCAL
SOUNDNESS OF CITY
GOVERNMENT
1.1 UPGRADE BOND RATING
1.2 MONITOR CHANGING
CONDITIONS. TRENDS AND
LEGlSLA TlON
1.3 EVALUATE REVENUE
ALTERNATIVES TO
PROPERTY TAX
].4 USE SOUND
PURCHASING PRACTICES
1.5 USE SOUND RISK
MANAGEMENT PRACTICES
ADDITIONAL REMARKS:
NEIGHBORHOOD REVIT ALIZA TION
A HUD Strategy
prepared 1/17/00
The HUD regulations (24 CFR Part 570) authorize entitlement grantees to devleop comprehensive
approaches to address economic development needs in a particular neighborhood within their
community.
A 'Neighborhood Revitalization Strategy" could offer Dubuque opportunity and flexibility.
The Neighborhood Revitalization Strategy is a written economic development plan that is submitted to
HUD in conjunction with the Consolidated Plan. (Can be an amendment to the Consolidated Plan.)
Benefits:
- enhanced flexibility in undertaking economic development activities
- ANY job creation or retention effort undertaken and focused on the neighborhood is deemed to
meet the standard CDBG low/moderate income area benefit requirements. (Economic
development activities are exempt from the aggregate public benefit standards.)
- Businesses who receive assistance are not required to track the income of applicants, but only
the number of persons. (Less paperwork)
- flexibility to promote innovative programs in economically disadvantaged areas
- Can track scattered site housing units developed as a single structure.
- Increased flexibility in using housing to assist in revitalization.
- All public services offered in the neighborhood are exempt from the public services cap, but
must be carried out by a Community-Based Development Organization.
Neighborhoods within Federally-designated Empowennent Zones are assumed to meet the requirement
that the neighborhood be high percentage of low/moderate income persons.
THE STRATEGY must:
- be developed in consultation with residents, business owners, financial institutions, non-profits,
community groups and members of the community/neighborhood.
- assess the ECONOMIC NEEDS of the neighborhood
- discuss: unemployment, number of businesses in the area, assess capital needed, housing needs, current
availability of economic development or other community services in the area.
- analyze: unmet demand for services, community organizations ready to assist, skills/services
underused, and fledgling projects unable to take root due to lack of funding.
MEMORANDUM
TO:
FROM:
DATE:
DMA TS Technical Advisory Committee
Stephen Williams, Senior Transportation Planner
January 20,2000
SUBJECT:
Schedule for DMATS Long Range Plan Activities
The 1998 Transportation Equity Act (TEA-21) requires that Metropolitan Planning
Organizations (MPO), in coordination with the State, develop transportation plans for
urbanized areas of the State. Such plans and programs must provide for the development of
all types of transportation facilities including roads, bike and pedestrian trails, freight (rail,
truck and river), air transportation and transit. Such plans are to be updated every five years
in order to reflect the current state of the region's transportation system and have a horizon
of at least 20 years into the future. After local adoption of)<the Long Range Transportation
Plan by the MFO it must be reviewed and approved by the Federal Highway Administration
for compliance with TEA-21 and applicable Federal requirements. If an MFO does not
adopt an updated Long Range Transportation Plan by it's deadline, the Federal Highway
Administration can determine that the MFO is out of compliance with the Federal
requirements and refuse to approve any additions or changes to the regions Transportation
Improvement Program. The DMATS Long Range Transportation Plan is due at the end of
June 2000.
Staff has been delaying focused work on the Long Range Transportation Plan in expectation
of a resolution of issues related to the IA 32 - Southwest Arterial. As noted in previous
reports to the DMA TS Policy Board, the IA 32 - Southwest Arterial is eXtremely important
to circulation in the city in the future and will have a large impact on traffic on US 61/151,
US 20 as well as local streets such as Grandview Avenue, Cedar Cross Road, Kelly Lane and
North Cascade. At this point, staff does not believe that DMATS can delay any longer in
moving forward with development of the updated Long Range Transportation Plan.
Staff proposes the following schedule for preparing the update of the Long Range
Transportation Plan. As the Policy Board will note, the proposed schedule does not result in
adoption of an updated plan until August 2000. Although this is after the June 2000
deadline, staff does not believe that missing the deadline by a few months will be a major
problem for DMATS. As noted above, the penalty for missing the deadline is that FHWA
will not approve Transportation Improvement Program amendments. This is a most SeÅeL
consequence in metropolitan areas which are moving forward with construction of many
large projects like Des Moines or Omaha/Council Bluffs. Since DMA TS is primarily
engaged in planning for the ultimate development of a few very large scale projects, there is
less need for TIP amendments during the course of a year. There have been only two TIP
amendments this fiscal year, and one of those incorporated the new Enhancement projects
~l~
into the TIP. Staff does not believe their will be any pressing TIP amendments in the first
months of the next fiscal year. As a result, missing the deadline by several months is not
anticipated to be a problem for DMA TS or any of it's member agencies.
1. Inventory - Staff will prepare and analyze descriptive data for all the
transportation systems in the region. Specific sections will be prepared for roads,
bike and pedestrian trails, freight, transit, and air. In addition, staff will inventory
both the human and natural environments of the region, including low income and
minority communities. Appropriate text will be written describing the state of the
region's transportation systems and environment.
Review by T edmical Advisory O:mmittæ at the February metring.
Review by the Policy Boa:rd at the February 17, 2000 metring,
2. Analysis and Issues Identification - Staff will then analyze the descriptive data
to identify issues which should be addressed in the Long Range Transportation Plan.
In addition, staff will seek input from the public and local interest groups through a
series of ad hoc meetings. At these meetings, members of the public and local
interest groups will be asked to provide their opinions on the key issues and
problems that should be addressed by the Long Range Transportation Plan.
Review by the T edmical Advisory O:mmittæ at the March and April mœtings.
O:Jnsikratim of issues by the Policy Boa:rd at the A pril13, 2 OOOmœting
3. Goals, Objectives and Policies - Staff will then prepare draft Goals, objectives,
and policies designed to address the statement of issues adopted by the DMATS
Policy Board at the April meeting.
Review by the T edmical Advisory O:mmittæ at the May 2000 metring
O:Jnsikratim of the Policy Board at the May 11, 2000 mœting
4. Identification of Projects and Fiscal Constraints - Based on the Goals, objects
and policies that are adopted by the Policy Board at the May 2000 meeting, staff and
the technical advisory committee will prepare a proposed list of projects for
inclusion in the LRTP update. Staff will also prepare an analysis of the fiscal
constraints required for the Long Range Transportation Plan. This proposed list of
projects and the proposed analysis of fiscal contraints will be submitted to the Policy
Board for review at the June 2000 meeting. At that time, the Policy Board will be
asked to approve the release of the goals, objectives and policies, the list of proposed
projects and the fiscal constraints for public reivew.
Review by the T edmical Advisory O:mmittæ at the JUI7£ 2000 mœting.
Review by the Policy Boa:rd at the JUI7£ 8, 2000 mœting
5. Environmental Analysis and Public Review - Staff will then undertake an
assessment of the environmental outcomes that will result from the proposed
projects. Staff will also analyze the proposed projects for compliance with the terms
of the Equal Rights Act. Staff will also conduct another series of public input
sessions with ad hoc interest groups and members of the public. Following the
completion of those activities the staff will document the environmental analysis and
public input and combine those products with those previously developed to create
the draft plan. The draft plan will be submitted to the DMA TS Policy Board at the
-
Ju~ 2000 meeting and staff will request approval to release the draft for public
reVIew.
Review by the T edmicd Advisory O:mmittæ at the July 2000 mæting.
Review by the Poliry Board at the July 13, 2000 mæting,
6. Public Hearing and Final Adoption - Following the July 2000 DMATS Policy
Board meeting, the draft plan will be released for public review and comment. At the
August 2000 meeting a public hearing will be held and the fmal plan submitted to the
DMA TS Policy Board for consideration.
Review by the T edmicaI. Advisory O:mmittæ at the August 2000 mæting.
Pub/if: Hearing and cvnsideratim by the Poliry Board at the August 2000 mæting.
No staff recommendation, this item for Policy Board information Otùy.
CITY OF DUBUQUE, IOWA
MEMORANDUM
February 15, 2000
TO:
Laura Carstens ~
Lisa Sesterhenn
28E Research and I plementation Recommendations
FROM:
SUBJECT:
This memo is to respond to your request to provide a recommendation regarding the
process to follow for development of an extraterritorial agreement or agreements with
Dubuque County and possibly other municipalities. For the purposes of this report, I
have reviewed the Development Needs Survey, City of Dubuque's Comprehensive
Plan, the Annexation Analysis information and the Facilitating Development Report. I
have also reviewed a number of 28E agreements and contacted city staff from Iowa
City and Waverly to research the process/politics associated with the development of
their 28E agreements. Finally, I have reviewed the development themes of the Smart
Growth process and attended the Urban Sprawl Conference in Des Moines sponsored
by the Iowa Engineering Society.
Based on this research, I have concluded that it would be desirable for the City of
Dubuque to develop a long range strategic plan for growth in concert with Dubuque
County. Part of the long range plan would include development of one or more 28E
agreements to allow for zoning control and subdivision review in areas targeted for
growth and annexation by the City.
The remainder of this report provides an analysis and background research for this
conclusion.
Development Needs Survey
The Development Needs Survey, completed in 1994, provides a baseline of information
regarding future development needs. The key to the study was the identification of a
"development reserve" necessary to meet future growth needs for various land uses. A
summary of the development reserves follows.
Type of Land Use Acres Required for Reserve to Meet
Future Development Needs
Single-Family 600-700
Multi-Family 200-300
Commercial 500-800
Industrial 700-800
Parks and Open Space 500-650
TOTAL 2,500 - 3,250
Through the construction of the Dubuque Technology Center and the expansion of the
Dubuque Industrial Center, the acres needed for industrial development have been
met. The Comprehensive Plan identifies land use and urban design goals to facilitate
development of the acres needed for residential and commercial acreage.
City of Dubuque Comprehensive Plan
The City of Dubuque's 1995 Comprehensive Plan includes land use and urban design
goals and objectives that speak to the need to encourage city-county cooperation to
develop policies for development of fringe areas, to enhance development, and to avoid
unregulated sprawl. Specific land use and urban design goals from the Comprehensive
Plan are shown below.
To plan for the city's future and orderly development within a regional context.
Consider the community's regional setting and economy when assessing the
opportunities and constraints for land development.
Minimize the negative impact of urban fringe development on regional
watersheds, ecosystems and rural infrastructure.
Encourage city-county cooperation to develop policies for development of fringe
areas, to enhance development and avoid unregulated sprawl.
Limit undefined urban sprawl by clearly defining the city's edge with open space,
bringing corridors of green into the city along natural and roadway corridors.
Encourage cooperative regional planning with all levels of government, to
develop a strategic plan for fringe area development that may include
annexation.
Balance farmland and critical area preservation with the need to annex
developable land for urban expansion.
It's clear that national and state trends are calling for the development of county-wide or
community-wide long range land use plans. While the 1995 Comprehensive Plan
outlines land use policies for within the City limits, growing the City will require
communication and planning with other entities. We also need to be attuned to the
theories presented in the Smart Growth literature and customize the themes to a
community that wants to encourage planned growth versus unplanned sprawl.
2
Annexation Analysis
The Development Needs Survey illustrates how much the City needs to grow in order to
meet the acreage reserves for a variety of land use and the 1995 Comprehensive Plan
states the goals that will allow the City to grow to meet the acreage needs. In order to
meet the acreage needs, the City can either utilize existing vacant City land or expand
the City limits through annexation. While inward expansion is part of the
Comprehensive Plan, it is also clear that the City will need to expand its limits through
annexation in order to meet the identified needed development reserves.
The Annexation Analysis, completed in 1998 by City staff and Yaggy-Colby Associates,
had the following purpose: preserve and protect orderly growth and to plan for logical
extensions of City services to promote manageable growth patterns. Based on a cost-
benefit analysis of 14 potential growth areas, priority areas and potential timeframes for
annexation were developed. The priorities were categorized as those with immediate
opportunity for development and annexation, benefitted areas, and areas for
preservation and control. For the areas where the City wants to grow based on the
priority areas identified in the analysis, there are two ways of accomplishing annexation:
voluntary and involuntary.
Based on the Annexation Analysis, Dubuque has a plan for fringe area development
with potential areas identified for residential and commercial development which would
more than satisfy the acreage reserves stated in the Development Needs Survey. The
long range growth plan for development and annexation can't happen in a vacuum.
Coinciding with the City of Dubuque's fringe development plans, other municipalities are
also faced with fringe area development issues. Since Dubuque has no claim on its
areas targeted for growth, other municipalities can also target these same areas for
their growth, as was the case with Asbury. In addition, developers have targeted these
areas for subdivisions meeting county building specifications. In conclusion, when the
City moves forward with its annexation plans, we should ensure that the fringe areas
that are annexed were developed in accordance with established City goals and
standards.
Facilitating Development Study
Another major issue is the ongoing development in Dubuque County in the areas
targeted for growth by the City of Dubuque. Since we do not have control of how this
development occurs, it will not meet city specifications for development unless this is
agreed on by all entities before development occurs. This is a major issue as 1998
residential growth for Dubuque County and other Cities was 2.5 times more than growth
in the City of Dubuque. There are two ways to increase residential development within
the city limits:
Encourage development in the existing city limits
Expand Dubuque's city limits through annexation
Although developing existing city land is a viable option, growth is limited by the
availability of developable land suitable for residential growth close to the growth areas
3
of the city (south and west) and the cost of developing residential land in the City of
Dubuque. In response to the issues presented by the Developers' Roundtable, city staff
initiated a Facilitating Development study to determine if developers needs can be
addressed. Based on the study, an action plan was developed for city staff to follow
changing some of the policies and costs of city development. Although some changes
were made to address the issues, it does not appear that the cost of building in the city
will be significantly reduced. Therefore the cost differential of developing land in the city
compared to other municipalities will still exist and the city can expect fringe area
developments to continue to occur unless a policy is developed.
The second interrelated options for residential growth are to immediately annex
additional land for development and/or develop a long range strategic county plan for
land use and development. The County of Dubuque, through ECIA, has submitted an
application for funding consideration from the Rural/Community Planning and
Development Fund. The County is requesting $60,000 to develop a multi-community
land use plan. According to Larry Nagle, he feels confident that the County will receive
grant monies either this fiscal year or during the next funding round. Please refer to
Attachment 1 for a copy of the pre-application.
In order to implement a county-wide plan, 28E agreements would need to be developed
to allow the City to exercise zoning control and subdivision review.
28E Agreements and Process
Determing a city's ability to grow and development of a county-wide land use and urban
development plan, and minimizing urban sprawl are all issues that are not unique to the
City of Dubuque, Dubuque County and other county municipalities. Many other counties
and cities in Iowa have already developed 28E agreements to address fringe area policy
and growth issues. A number of these agreements were researched by Planning
Services staff during August of 1999. The fringe area policy agreements between Iowa
City and Johnson County and Iowa City and Coralville seem to most closely reflect the
situation in Dubuque County. I have also talked with the Planning Director for Iowa City
regarding the process they utilized to reach their agreements.
Specific details regarding these agreements and research on other agreements are
shown as Attachment 2.
Process Recommendation for the City of Dubuque
Based on my research and analysis, it is clear that the City of Dubuque needs to
encourage and support the development of a long range strategic plan for land use in
Dubuque County. In addition, we need to take the lead on the development of a fringe
area policy agreement with Dubuque County. The agreement should specifically address
the Southwest Arterial Corridor and the two mile fringe area surrounding the current City
limits. An outline of a process that could be utilized in shown on the following page.
4
6.
7.
8.
9.
10.
11.
12.
1.
Planning Services staff receives approval from the City Manager and City
Council to pursue the development of a fringe area policy agreement with
Dubuque County. Staff should also keep in contact with ECIA regarding the
status of the county's land use planning grant.
The City of Dubuque establishes a working group to develop a draft model
fringe policy agreement and land use map. The working group would also
keep abreast of pertinent legislative issues and the county's grant
application. Options for the makeup of the working group include:
the Long Range Planning Commission,
a subcommittee of the Long Range Planning Commission and
appropriate City staff, or;
a subcommittee of the Long Range Planning Commission and the
Zoning Commission.
Formally notify Dubuque County of our desire to develop a long range
strategic plan for land use and development in Dubuque County and fringe
area policy agreement(s).
Hold an informational meeting for the Dubuque City Council, relevant city
boards, County Board of Supervisors and appropriate individuals from other
municipalities.
Form a committee comprised of city and county officials to draft a long
range land use plan and model fringe area agreement. The committee
makeup could be the entire City Long Range Planning Commission and the
County Planning and Zoning Commission or a subcommittee from each
commission. Members from the City Zoning Advisory Commission could
also be included on the subcommittee.
Committee meetings take place with assistance from city and possibly
county staff.
Present draft agreement and land use plan to the City Council and Board of
Supervisors for approval.
Prepare and hold public hearings through the City Council and Board of
Supervisors.
Finalize agreements through the established committee.
Present finalized agreements to the City Council and Board of Supervisors
for approval and signatures.
Implement agreement by incorporating information into city and county
policies and procedures.
Reconvene ad hoc committee as needed.
2.
3.
4.
5.
5
Iowa City: Karin Franklin's comments
Process started back in 1983, city and county were diametrically opposed, the city
wanted to limit growth areas, county approved development about anywhere. In the
1980's a downzoning of property was proposed but was met with great opposition.
An ad hoc committee of elected officials from the Board and Council, and members of
the planning and zoning committees was formed to develop the agreements with city and
county staff assistance. Once a prospective agreement was developed from the joint
committee, the council and board took the agreement through their formal process. This
is where all of the public hearings took place. She said that no one was particularly
thrilled with the agreement as it didn't really address all of the needs. Be as precise as
possible in agreement. She gave an example: agreement says agriculture use is
preferred and the city gets to review and comment on any development proposed within
the two mile fringe area. City doesn't want development, county would rezone if at all
possible even though language states that ag is preferred. Agreement is now more
precise which she recommends. Coralville has a separate agreement with the county and
coralville and Iowa City have their own agreement. This was developed through the
council of governments ücerog (city)staff). She said that the city should develop their plan
for the fringe area and "embrace your principles" as they will get watered down through
the process. Iowa City amended their comprehensive plan to include the fringe area
agreement. The land use plan is also used in each of the 10 Iowa city districts for the
fringe area as well as the city limits.
6
Attachment 1
Pre-A. .Iication - Rural/Community Planning and Development Fund
Project Information
1. EligiiJeb\uoliéhtntv
IDED use only
Please include
your area code/
(Must be c'O'. county or COG)
Contact person: lan Hess. Administrative Assistant
Mailing address: Courthouse
City, state, zip: Dubuque. Iowa 52001
Phone: 3 I 9-589-444 I
Fax: 319-589-4478
Email:
Name: Larrv2NaRlw~ßDntái!trector
Mailing address: ECIA. Box 1140
City, state, zip: Dubuque. Iowa 52004-1140
Phone: 319-556-4166
Fax: 319-556-0348
Email: Inagle@ecia.org
Please Include
your area code/
3. Issue area to be addressed: (Check all that apply)
----X-
Organizational development
Leadership development
Governmental services (to enhance economic development potential)
Housing (for assessments or pre-development assistance only)
Workforce
To",i~
Commercial development
Industrial development
Marketing development
Multi-community land use planning
Local community betterment
Project development (related to an economic development initiative or opportunity)
Other. Describe:
4. List communities and their population included in the project area:
I P""5
. D.'.,., C...,,' 16~444 ~
Piom'iart'nle~r
[l
Piom'ia rtlnIC~' r
["l
8
5. Grant requested (maximum allowed is $50,000 over a three-year period):$40.000
Local cash (minimum 25%): $20.000
In-kind match (minimum 25%):$ -0-
TOTAL PROJECT: $60.000
Refer to the suggested
amounts in guidelines
9
Pre-A. .Iication - Rural/Community Planning and Development Fund, continued
6. Project time frame (not to exceed three years):7/1 /00
6/30/03
Start Date
Completion Date
7. List the person(s) or organizations that have assisted the applicant in the development of
this proposal:
The application has been prepared at the direction of the Dubuque County Board of
Supervisors, and the Dubuque County Planning and Zoning Commission. It is supported by the
other local governments in the County.
8. State the need for the project - no more than 150 words or the space provided.
This project is needed in response to significant residential, commercial, and industrial growth
that has occurred during the 1990s and the impact that growth has had on unincm:porated areas
of the County. This growth has demonstrated a need to examine growth issues related "urban
sprawl" and to the use of/and and the provision of services to developing areas. A land use
survey done for the Iowa Department of Economic Development had several significant
findings:
1. The City of Dubuque has annexed approximately 1000 acres of land since 1997
primarily to accommodate industrial growth. Recently concern has been expressed at the
City Council level about the need for additional land to deal with the need for residential
development.
2, The Citv of Asburv. adjacent to the City of Dubuque, has annexed approximate
1000 acres of land since 1997 primarily to accommodate residential development.
3. The City of Peosta, located about 10 miles west of Dubuque, has
grown from a population of 57 in 1970 to an estimated 400 in 1996. This growth is
stimulated by residential development on the city's north and east sides.
4. The City of EDworth is locate west of Dubuque along Highway 20 and is starting to face
residential development pressures on the eastern boundary.
5. The City of Farley has seen new residential and industrial development occur south and
west of the City, adjacent Highway 20, on previously undeveloped land.
6. The City of Dversville is experiencing residential growth in an unincorporated area east
of the City near a golf course.
7. Dubuque Countv is experiencing significant residential growth in unincorporated areas.
From 1993 through 1998, there were 556 residential units built in the County compared to
1209 in cities (663 in Dubuque and 546 in all other cities). The trend is continuing and in
1997 and 1998 there were more units built in unincorporated areas than the City of
Dubuque: 164 in the County, 145 in Dubuque and 188 in all other cities.
10
9. What is the objective/goal(s) of this proposal as it relates to the stated need - no more than
150 words or the space provided.
I.
INVENTORY AND ASSESSMENT OF EXISTING CONDITIONS
ECIA staff will assess the existing situation by completing the following tasks:
. Review the existing general land uses in the County unincorporated area
. Review the changes in land use for consistency with the County's existing Comprehensive Plan.
. Review and assess the current County zoning including a review of zoning changes since 1990
and building pennit inventory infonnation.
This review will be based upon infonnation and maps provided by the County. The completed
review will be presented as a summary report to the Zoning Commission.
II.
POPULATION PROJECTIONS; ANALYSIS OF FUTURE LAND USE NEEDS
ECIA will provide data concerning historical population and employment trends and reach
consensus with the Zoning Commission on population projections to 2020. ECIA will also review
County maps, city annexation plans and related statistics to detennine future land use needs in the
unincorporated area.
III. DEVELOPMENT CONSENSUS ON GENERAL LAND USE OBJECTIVES AND
POLICIES
ECIA will work with the Zoning Commission in developing and reaching a consensus on general
land use objectives and policies that are proposed for the revised Comprehensive Plan.
IV.
PRODUCT: FUTURE LAND USE PLAN AND MAP
Following completion of Sections I - III, ECIA will work with the Zoning Commission to prepare
an updated Dubuque County Future Land Use Plan and Map (Comprehensive Plan), including
general recommendations for changes to the existing zoning ordinance and zoning map, suitable for
presentation to the Board of Supervisors and ready for adoption.
V. MEETINGS AND HEARINGS
ECIA will attend both regular and special meetings, as necessary, of the Dubuque County Zoning
Commission and with officials and citizens of cities in the County until Sections I - IV in this
Scope of Services are complete. Staff will attend meetings of the Dubuque County Board of
Supervisors as necessary and provide written progress reports to ensure communication with the
Board on the progress of the Plan and the nature of proposed changes.
At the appropriate times, staff will facilitate and help the Zoning Commission and/or Board of
Supervisors in holding public hearings on the proposed Comprehensive Plan including the General
Objectives and Policies, Future Land Use Plan, Future Land Use Map and general
recommendations for changes to the Zoning Map and Zoning Ordinance.
11
Pre-A. .lication - Rural/Community Planning and Development Fund, conlinued
1. If proposal includes hiring consuItant(s), please list name(s) and process used to select
consuItant(s):
The County will utilize the services of the Council of Governments. The County is a member
of the East Central Intergovernmental Association and has a long relationship with that
organization and the staff.
2. Briefly describe how the grant funds requested will be used to meet your objective and
achieve your goal(s).
The grant funds will be used for consultant (COG) expenses related to preparation of the plan
3. List other grants for which you have applied or received related to this project. (past 12
months)
None
12
Pre-A. .Iication - Rural/Community Planning and Development Fund, contInued
4. Does your community have an economic development organization? YES I NO
If yes, please indicate if it is:
~ Full time with paid staff (Greater Dubuque Development Corporation)
- Voiunteer group
_Involved in the proposed project (List the organization(s) involved):
5. Population:
87,806 Current
86,403 1990
+1,6%
Percentage of change (+ or-)
Comprehensive Overview of the Project Area
6. Has a Housing Needs Assessment been completed? YES I NO
If yes, indicate the date completed: The Cities of Dubuaue Asbury. Epworth Farlev Worthinaton.
Cascade and New Vienna have completed Assessments.
7. List activities related to housing (and the source of funding such as CDBG, HOME, LHAP, HEZ,
HAF, Private, etc.) that are occurring in the project area.
None of these projects are occurring in the project area, However, the County and the Cities have
traditionally been supportive of housing for low income person. All have or are members of housing
authorities and most have utilized the funding programs mentioned above, Currently, Epworth. Farley,
and Worthington are implementing housing rehabilitation programs using CDBG funds.
17. Indicate the availability and condition of the infrastructure in the project area: This question is not
applicable to this application
Availabilitv
- Adequate
- Inadequate
- Under construction
- In planning/development stages
- In discussion stages
Condition
- Exceilent
- Good
_Fair
_Poor
18. Has a comprehensive plan or community builder plan been completed? YES I NO
If yes. indicate the date completed or last updated: Dubuaue Countv completed a Comm, Builder Plan
in 1992 and 1997,
19. Is the community (or communities) in the project area certified in the Community Economic
Preparedness Program? YES I NO This question is not applicable to this application
If yes, indicate in which area(s):
- Industrial
- Commercial
- Tourism
- STARS Community
13
20. Does the community (or communities) in the project area participate in the Main Street Iowa
program? YES I NO
This question is not applicable to this application
21. Have studies or plans been conducted to date that support the need for this project? YES I NO
(do not attach to this pre-application)
This question does not apply to this application
14
Pre-A. .Iication - Rural/Community Planning and Development Fund, continued
22, Is this proposal consistent with existing plans? YES / NO
Briefiy explain why or why not.
This quesIion does not apply to this application
23. Does this project contribute to wise land use, including redevelopment of downtown and vacant
"infill" sites and buildings, and avoid unnecessary consumption of agricultural land? YES / NO Briefly
explain,
This project directly contributes to wise hmd use planning by identifying appropriate growth
areas and the policies that implement such gro\\1h,
24. List new business/industry or expansions of existing business/industry in the past five years (in
project area).
S,'c qu~stil)n #s
25. Do you have the resources to support the project, or plans to address them? Check all that
apply.
--1L-Commitments from the partners critical to the project have been received in writing,
_Financial commitment for additional staff person (if requested) has been secured to sustain the
position.
_Workforce (skilled/unskilled) is available or being recruited,
_Hollsing is available to support recruited workforce or new/expanding business and industry,
_Daycare and other services are accessible to workforce,
_Financial commitments have been received from the partners in the project.
15
_Commitment from the community has been received and documented,
_Office space, phone, fax, computer, and other administrative support has been secured,
_Other agencies (state, private. etc,) as needed. are committed and letters of support are in hand.
16
. :
Attachment 2
, :
CITY OF DUBUQUE, IOWA
MEMORANDUM
August 31,1999
TO:
Laura Carstens, Planning Services Manager
FROM:
Kyle Kroner, Assistant Planner
SUBJECT: 28E Extraterritorial Agreement Research
This memo is to respond to your request to compile a report on 28E extraterritorial
agreements between municipalities and their associated counties.
Chapter 28E of the Code of Iowa permits state and local governments in Iowa to make
efficient use of their powers by enabling them to provide joint services and facilities with
other agencies and to co-operate in other ways of mutual advantage. Expanded
zoning, subdivision, and infrastructure regulations are considered services that fall
under this chapter.
The City of Dubuque may find it desirable to enter into such a 28E extraterritorial
agreement(s) with Dubuque County for a number of reasons. A 28E agreement may
allow the City of Dubuque to exercise zoning control and subdivision review in areas
where it finds it necessary to dictate future land use. Examples of such cases include
preserving a corridor for the future extension of the Southwest Arterial and controlling
unregulated housing development (urban sprawl) on the fringes of the city. The City
has had only joint subdivision review within its two-mile extraterritorial limits. The City
has zoning and site development control only within its corporate boundaries.
The City of Dubuque's 1995 Comprehensive Plan includes land use and urban design
goals and objectives that speak to the need to encourage city-county cooperation to
develop policies for development of fringe areas, to enhance development, and to avoid
unregulated sprawl.
The following 28E agreements were reviewed for this report:
Two-Mile Area Policy Agreement: Bremer County and the City of Waverly
Fringe Area Policy Agreement: Johnson County and the City of Iowa City
Zoning Authority Agreement: Carroll County and the City of Manning
Floodplain Enforcement Agreement: Scott County and the City of Riverdale
Floodplain Enforcement Agreement: Scott County and the City of Donahue
Planning Services Agreement: Johnson County, Johnson County Council of
Governments, and the City of Iowa City.
Memo to Laura Carstens
28E Agreements
August 31, 1999
Page 2
Two-Mile Area Policy Agreement: Bremer County and the City of Waverly
The Two-Mile Area Policy Agreement between Bremer County and the City of Waverly
establishes development policies and implementation measures regarding annexation,
zoning, and subdivision review for various geographically designated areas within the
City of Waverly's two-mile extraterritorial jurisdiction outside of its corporate limits. The
agreement designates 3 specific development areas, each with its own development
policies and targeted land uses.
Zoning regulation for all of the unincorporated areas, including the City of Waverly's
two-mile jurisdiction, remains under the authority of the Bremer County Zoning
Ordinance. Each request for rezoning property within specified areas of the agreement
are forwarded to the City for comment prior to a public hearing by the County Planning
and Zoning Commission. Any zoning change must conform with the policies identified
for the area in which the requested change is located.
Subdivision of land within the two-mile jurisdiction of the City is regulated in accordance
with the area policies specified in the agreement. One area requires City design
standards and requests are forwarded to the County for comment prior to public
hearing. One area requires concurrent review by both the City and County, and design
standards are determined by a cooperative process. The County has sole review of
subdivisions in the last area, and each request is forwarded to the City for comment
prior to a public hearing.
The City of Waverly is required to annex territory within one area at the time of
subdivision and extension of municipal services. The two remaining areas are not
required to be annexed in accordance with this agreement.
Fringe Area Policy Agreement: Johnson County and the City of Iowa City
The Fringe Area Policy Agreement between Johnson County and the City of Iowa City
established development policies regarding annexation, zoning, and subdivision review
for the Iowa City fringe area. The agreement designates certain fringe areas as
determined by the City of Iowa City Land Use Plan.
The first fringe area permits residential development by considering, on a case by case
basis, proposals to rezone the land in this area to allow one dwelling unit per three
acres. If the City annexes land in this fringe area, the City has agreed not to
automatically extend its fringe area authority to review and approve all subdivisions.
The City will review the extension of its fringe area on a case-by-case basis in
consultation with the County.
. :
Memo to Laura Carstens
28E Agreements
August 31,1999
Page 3
Rural subdivisions within the second fringe area are required to meet City urban design
standards, as it is an area of high annexation potential. Developments approved prior
to annexation are required to be served by. packaQ.e sanitary sewer treatmpnt plants
and common wells constructerl to City standards so that they can be connected to
municipal systems upon annexation. The City gives favorable consideration to
voluntary annexation of this land and its development at an urban density in this area.
Prior to its annexation, any zoning changes must be consistent with the City's Land Use
Plan.
Land in the last growth area that is presently zoned for residential development may
develop in conformance with existing zoning, provided subdivisions conform to City
urban design standards. It is consistent with the purpose of the aç¡reement not to
aDDrove commercial and industrial aevelopments within this area prior to annexation.
The City will give favorable conSlaeratlon to annexation of this land and its Bévelopment
for commercial and industrial uses consistent with urban development patterns.
The Johnson County Zoning Ordinance retains zoning control over all unincorporated
territory. The County will forward each request for rezoning of property within the fringe
areas specified in the agreement for review and comment by the City of Iowa City prior
to public hearing. Any changes must conform with the policies identified for the area in
which the property is located.
Subdivision of land within the fringe area will be required to conform to either City rural
design standards or City urban design standards. Applications for subdivisions are
coordinated to ensure concurrent review by both the City and County Zoning
Commissions.
The City is only able to annex land in accordance with this agreement, and upon receipt
must forward applications to the County for review and comment prior to a public
hearing.
Zoning Authority Agreement: Carroll County and the City of Manning
The Zoning Authority Agreement between Carroll County and the City of Manning
allows the City to exercise zoning jurisdiction within a designated area beyond its city
limits, increases both the City Planning and Zoning Commission and City Board of
Adjustment by two members, and surrenders the County's zoning authority within
designated areas to the newly formed boards.
The newly created boards generally have the same powers and duties as they did prior
to the agreement. The new boards now have the same legal powers in the area within
two miles of the Manning City limits that the previous boards have had within the'
Manning corporate limits. The two additional members to each board are appointed by
the Carroll Board of Supervisors and must reside within the two mile jurisdiction of the
City of Manning.
Memo to Laura Carstens
28E Agreements
August 31, 1999
Page 4
Floodplain Enforcement Agreements: Scott County and the Cities of Riverdale
and Donahue
The Floodplain Enforcement agreements between Scott County and the Cities of
Riverdale and Donahue delegates the duties and responsibilities of administering
floodplain regulations to the Scott County Planning and Development Department. The
Cities of Riverdale and Donahue retain full responsibility for taking the necessary legal
action to force compliance through the Riverdale and Donahue City Attorneys, Any
requests for floodplain development variations require review and determination by the
Cities respective Boards of Adjustment.
The Scott County Planning and Development Department is to establish an
administrative system of floodplain inspection and enforcement within the Cities of
Riverdale and Donahue. The Department will enforce floodplain regulations, issue
permits for all development in the floodplain, and provide reports and recommendations
to the Boards of Adjustment on proposed variances for new development in the
floodplain.
Planning Services Agreement: Johnson County, Johnson County Council of
Governments and the City of Iowa City
The Planning Services Agreement between Johnson County and the City of Iowa City
was established in order to provide staffing for the Johnson County Council of
Governments (JCCOG). All staff responsibilities, services, and duties performed by or
on behalf of the Johnson County Council of Governments are performed solely by
employees of the City or County.
The City of Iowa City provides part-time services for a Planning and Program
Development Director, who serves as the Director of JCCOG staff. All costs for this
position is paid by the City. The City also provides full-time services of a Transportation
Planner and an Assistant Transportation Planner, and the part-time services of a
Technical Assistant, Community Assistance Coordinator, and Human Services Planner.
All of these positions are paid for through JCCOG accounts.
Johnson County provides the services of a Senior Planner to serve as the Division
Head of the Rural Planning Division. The Senior Planner is a County Employee and all
associated costs are paid by the County.
Attachments
KK/mkr
" :
Appendix C
,.
i'
Prepared by:
i'STA
Karin Franklin, PCD Director. 410 E. Washington St.. Iowa City, ~A 52240 !31'!t1 356-lf:J2
:.;'.: . " 1158 JH 'SG
RESOLUTION NO.
96-239
RESOLUTION AUTHORIZING THE MAYOR TO SIGN AND THE CITY CLERK TO
ATTEST AN AGREEMENT BETWEEN JOHNSON COUNTY. IOWA AND IOWA
CITY. IOWA. ESTABLISHING POLICIES FOR DEVELOPMENT OF LAND WITHIN
THE EXTRATERRITORIAL AREA OF IOWA CITY AND INCORPORATING THOSE
POLICIES INTO THE IOWA CITY COMPREHENSIVE PLAN.
WHEREAS. Chapter 28E of the Code of Iowa (1995) enables two or more local governments
to enter into agreements to cooperate for their mutual advantage; and.
WHEREAS. the Development Policy for Rural Johnson County adopted, January 1979, calls
for the preparation and adoption of development plans and agreements between the County
and the City regarding the municipality and its environment; and '
WHEREAS, the Iowa City Comprehensive Plan Update adopted in January 1989. and amended
through March 1993, outlines the extent of urban development expected within the next 20
years and outlines land use policies for Iowa City; and
WHEREAS, it is in the interest of Johnson County and the City of Iowa City to establish
policies for the orderly growth and development within the City's extraterritorial jurisdiction;
and
WHEREAS, Johnson County and the City of Iowa City mutually agree that such policies are
necessary to more effectively and economically provide services for future growth and
development and to protect and preserve the extraterritorial area's natural resources and its
environmentally sensitive features.
I
NOW, THEREFORE, BE IT RESOLVED THAT:
1.
The City Council of the City of Iowa City, Iowa hereby accepts and agrees to the
policies regarding annexation, zoning and subdivision review for the various designated
areas included in the attached Fringe Area Policy Agreement between Johnson County,
Iowa and Iowa City, Iowa; and
2.
The City Council of the City of Iowa City hereby incorporates the Fringe Area Policy
Agreement into the Iowa City Comprehensive Plan; and
3.
The City Council of the City of Iowa City, Iowa hereby authorizes the Mayor to sign
and the City Clerk to attest to the attached 28E Agreement between Johnson County
and Iowa City establishing land use policies for the two-mile extraterritorial jurisdiction
of Iowa City, for recordation as provided by law.
Resolution No.
Page 2
96-239
Passed and approved this
6th
ATTEST: :~.~ k'. ~
CI CLERK
day of
AuQust
,1996.
~ 'J~
~.
MAYOR (/
Approved b~ .
~ /l. W~
C Attorney's Office cf'-/-U
It was moved by Nnrtnn and seconded by
adopted, and upon roll call there were:
AYES:
x
X
-r-
-L-
--X- .
--L-
ppdadmin\2mileic.res
NAYS:
Thnrnh..rry
the Resolution be
ABSENT:
Baker
- Kubby
X- Lehman
- Norton
== Novick
Thornberry
== Vanderhoef
(
(.
c
, ,\
FRINGE AREA POLICY AGREEMENT
BETWEEN JOHNSON COUNTY AND IOWA CITY
WHEREAS, Chapter 354, Code of Iowa (1995) allows the City of Iowa City to establish an
extraterritorial area, known as the fringe area, within two miles of the city boundaries for the
purpose of reviewing and approving subdivisions; and
WHEREAS, Chapter 354 further grants the City the authority to require that subdivisions
within the fringe area adhere to the City's subdivision standards and conditions, unless the
City establishes alternative standards and conditions for review and approval of subdivisions
via a 28E agreement between the City and the County; and
WHEREAS, Chapter 28E of the Code of Iowa (1995) enables two or more local governments
to enter into agreements to cooperate for their mutual advantage; and
WHEREAS, the Development Policy for Rural Johnson County adopted January, 1979, calls
for the preparation and adoption of development plans and agreements between the County
and the City regarding the municipality and its environment; and '
WHEREAS, the Iowa City Comprehensive Plan Update adopted in January, 1989, and
amended through March, 1993, outlines the extent of urban development expected within the
next 20 years; and
WHEREAS, it is in the interest of Johnson County and the City of Iowa City to establish
policies for the orderly growth and development within the City's fringe area; and'
WHEREAS, Johnson County and the City of Iowa City mutually agree that such policies are
necessary to more effectively and economically provide services for future growth and
development and to protect and preserve the fringe area's natural resources and its
environmentally sensitive features.
NOW, THEREFORE, THE PARTIES AGREE AS FOllOWS:
SECTION I. FRINGE AREA DEVELOPMENT POLICIES
The parties accept and agree to the following development policies regarding annexation,
zoning, and subdivision review for the Iowa City fringe area as authorized by Chapter 354,
Code of Iowa (1995).
Purpose:
The Fringe Area Policy Agreement is intended to provide for orderly and efficient development
patterns appropriate to a non-urbanized area, protect and preserve the fringe area's natural
resources and environmentally sensitive features, direct development to areas with physical
characteristics which can accommodate development, and effectively and economically
provide services for future growth and development.
In light of these objectives, the City and the County examined the development capabilities
of the Iowa City fringe area and determined that development within this fringe area is to
occur in accordance with a) the Land Use Plan attached to this Agreement, b) development
standards contained in Section 8 of this agreement, and c) the fringe area development
policies contained in Section C of this Agreement.
- 2.
A.
Land Use Plan
(
The Land Use Plan, attached to this Agreement as Attachment 1, illustrates the land use
patterns for the fringe area.
B.
Development Standards
The following standards apply to unincorporated development in the fringe area.
C.
1.
Discourage development in areas which conflict with the Johnson County
Comprehensive Plan which considers CSR (Corn Suitability Rating), high water
table, wetlands, floodplain, non-erodible soil, and road suitability.
2.
Protect the public health by requiring developers to meet or exceed minimum
standards for water and wastewater systems in all developments within the Iowa
City Fringe Area pursuant to Johnson County Public Health Department
Regulations.
.3.
Encourage cluster development which preserves large tracts of open space
inêluding environmentally sensitive areas and farm land, results in compact
development which requires less infrastructure, and is more efficient for provision
of services.
Fringe Area Development Policies
The parties agree to apply the following fringe area development policies.
(
FRINGE AREA A
1.
Permit residential development by considering, on a case-by-case basis, proposals
to rezone land in this area to RS-3 (one dwelling unit per three acres of lot area).
RS zoning will be considered if the application to rezone includes a plat showing
a minimum of 50% of the property as an outlot designated as open space or
agriculture. Development must comply with City Rural Design standards contained
,in Appendix A.
2.
If land is annexed within Fringe Area A, the City agrees that it will not
automatically extend its fringe area authority to review and approve all
subdivisions, which it exercises pursuant to Iowa Code §354.9 and Title 14,
Chapter 7 of the City Code of the City of Iowa City, Iowa. The City will review
the extension of its fringe area as a result of annexation on a case-by-case basis
in consultation with Johnson County.
FRINGE AREA B
As set forth in Iowa City's adopted growth policy, the City will likely annex land within
one mile of Iowa City to the east and within two miles of Iowa City to the south in the
short-range. It is therefore consistent with the purpose of this agreement that rural
subdivisions within these areas of high annexation potential be required to meet City
Urban Design Standards contained in Appendix A.
\.
1.
!-and within Iowa CitV's Growth Area. As applications are received to develop land
contiguous to and within the growth limits of the city, the City will give favorable
'.' ,
B.
C.
- 5-
2.
Pursuant to Section' 8: 1,30 of the Johnson County Zoning Ordinance, any person
may request a variance to the lot IIrell regulations of the zoning ordinance or appeal
the decision of any officer of the County as that decision relates to enforcement
of the Zoning Ordinance.
3.
The County will forward each request for rezoning of property within the Fringe
Areas specified in this Agreement to the City for review and comment prior to the
public hearing before the County Planning and Zoning Commission. Any zoning
change will conform with the policies identified for the Area in which the property
is located.
4.
Properties zoned for a classification which is inconsistent with this Agreement, at
the time this Agreement is executed, shall retain the rights under that zoning,
unless and until such zoning is changed through due process.
Subdivision Reaulation:
1.
Subdivision of land within Iowa City's fringe area will be required to conform to
either City Rurlll Design Standards or the City Urban Design Standards in
accordance with the policies specified in this Agreement.
2.
Persons wishing to subdivide land within the fringe area specified in this
Agreement shall be required to simultaneously file a subdivision application with
both the City and the County. The City and the County shall coordinate the
processing of the application to ensure concurrent review by both the City Planning
and Zoning Commission IInd the County Planning and Zoning Commission.
3.
Subdivisions of land into less thlln three lots will continue to be regulated by the
County.
Annexation:
1.
Iowa City will annex territory only in accordance with the policy statements
specified in this Agreement.
2.
The City will, upon receipt, forward applications requesting annexation or
severance (deannexation) of property within the fringe area specified in this
Agreement to the County for review and comment prior to consideration by the
Iowa City Planning and Zoning Commission.
3.
As appropriate and necessary, the City may extend the two-mile extraterritorial
subdivision plat review area. Prior to any such extension, the City will forward to
the County a proposal which includes the extension of the City's plat review
authority for any distance up to the two mile limit provided by State law. The
County will have a specified time within which to respond in affirmative
agreement, negatively or with an alternative proposal. The City will take the
County's response under advisement when determining the extension of
extraterritorial review.
- 6.
SECTION IV. AGREEMENT REVIEW
At any time during the three (31 year term of this Agreement. either the Chair of the Johnson
County Board of Supervisors or the Mayor of the City of Iowa City may initiate review of the
policies of this Agreement by contacting the other party to this Agreement. Both parties to
this Agreement shall consider modifications of this Agreement. as appropriate.
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SECTION V. EFFECTIVE PERIOD
This Agreement shall become effective upon acceptance and execution by the parties. and
shall be in effect for three (3) years after the date of execution of this Agreement. This
-Agreement may be modified and extended by the wrinen mutual consent of the parties.
-SECTION VI. RECORDATION
This Agreement shall be filed with the Secretary of the State of Iowa, and with the Johnson
County Recorder in compliance with Chapter 28E, Code of Iowa (1995).
1 .
Dated this L-day of ;.""./-,.-.:1 ,1996.
Anest: -/-.l
County Auditor
APP~
' l.~
County ;tI.norney's Office
t
Dated this ~ day of
AuQust
.1996.
CITY OF IOWA CITY
By: f~: J r~~~
Mayor .
Anest: ~,I!. ~
City C rk
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t'-If> - n
ATTACHMENTS:
1-
2.
3.
Proposed Land Use Map for the Iowa City Fringe Area.
Figure 1: Fringe Area B (formerly Areas 5 and 6) Land Use Plan.
Appendix A: Definition of Standards
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consideration to the voluntary annexation of this land and its development at an
urban density in conformance with the City's adopted land use plan for Fringe Area
B (Attachment 2). Prior to annexation, any zoning changes in Iowa City's
projected growth area shall also be consistent with the City's adopted land use
plan for Fringe Area B.
Subdivisions within Iowa City's projected growth area shall conform to City Urban
Design Standards contained in Title 14. Chapter 7 of the City Code of Iowa City.
including but not limited to City specifications for streets and roads, sanitary sewer
lines, storm water management facilities and water lines. Developments which are
approved prior to annexation shall be required to be served by a package sanitary
sewage treatment plant and common wells with sanitary sewer and water
collection and distribution systems which are constructed to City standards and
can be connected to municipal systems upon annexation.
Subdivisions which are approved prior to annexation shall be required to be cluster
developments with a minimum of 50% of the development designated as an outlot
for open space. agriculture, or fUture development upon annexation.
2.
Land outside Iowa Citv's Growth Area. On the balance of land in Area 8 that lies
outside Iowa City's projected growth area, agricultural uses are preferred.
However, consideration will be given to applications for single-family residential
development at a density of RS-10 (1 dwelling unit/10 acres). This development
must conform to Rural Design Standards.
3.
Upon annexation of land within Fringe Area 8, the City agrees that it will not
aUtomatically extendo.oits fringe area aUthority to review and approve all
subdivisions, which it exercises pursuant to Iowa Code §354.9 and Title 14,
Chapter 7 of the City Code of the City of Iowa City, Iowa. The City will review
the extension of its fringe area as a result of annexation on a case-by-case basis
in consultation with Johnson County.
FRINGE AREA C
1.
Land within Iowa Citv's Growth Area. Land in Area C which is presently zoned for
residential development, and within Iowa City's growth area, may develop in
conformance with existing zoning, provided subdivisions shall conform to City
Urban Design standards contained in Title 14, Chapter 7 of the City Code of Iowa
City, including but not limited to City specifications for streets and roads, sanitary
sewer lines, storm water management facilities and water lines. Developments
which are approved prior to annexation shall be required to be served by a package
sanitary sewage treatment plant and common wells with sanitary sewer and water
collection and distribution systems which are constructed to City standards and
can be connected to municipal systems upon annexation.
Subdivisions which are approved prior to annexation shall be required to be cluster
developments with a minimum of 50% of the development designated as an outlot
for open space, agriculture, or future development upon annexation.
Upon annexation to Iowa City, commercial and/or industrial development is
encouraged in the portion of Section 20 of West Lucas Township that is located
in the east and south quadrants of the Highway 1 and Highway 218 interchange.
It is consistent with the purpose of this agreement not to approve commercial
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and/or industrial developments within this area prior to annexation. As stated in
the Johnson County Rural Development Plan, commercial and/or industrial
development will be encouraged to locate in the interchanges of paved roads.
Commercial and/or industrial development will be discouraged in all other areas of
Fringe Area C.
As applications are received to develop land contiguous to Iowa City and within
this portion of the City's growth area, the City will give favorable consideration to
the voluntary annexation of this land and its development for commercial and/or
industrial uses consistent with urban development patterns.
2.
Land outside Iowa Citv's Growth Area. In the portions of Area C which are not
within Iowa City's growth area and which are zoned for non-farm development,
development may occur in conformance with Johnson County's Zoning Ordinance
and City Rural Design Standards.
The land in Area C currently zoned A-1, Rural, and outside the City' s growth area
will be considered, upon receipt of an application, for rezoning to ,RS-10 (1
dwelling unit/10 acres). RS-5 (1 dwelling unit/5 acres) will be considered if the
application to rezone includes a plat designating a minimum of 80% of the property
as an outlot for open space or agriculture.
Rural Design Standards will apply to all development outside the City's growth
area.
3.
Upon annexation of land within Fringe Area C, the City agrees that it will not
automatically extend,.'its fringe area authority to review and approve all
subdivisions, which it exercises pursuant to Iowa Code §354.9 and Title 14,
Chapter 7 of the City Code of the City of Iowa City, Iowa. The City will review
the extension of its fringe area as a result of annexation on a case-by-case basis
in consultation with Johnson County.
SECTION II. PROTECTING AGRICULTURAL OPERATIONS
Any regulations in the Fringe Area Agreement will not interfere with the Right to Farm, as
contained in the Code of Iowa Chapter 335.2, Farms Exempt; and as noted in the Johnson
County Zoning Ordinance, Chapter 8.2, Protecting Agricultural Operations.
SECTION III. ADMINISTRATIVE POLICIES
As a rule, zoning regulation is the county's prerogative if a county has adopted a zoning
ordinance. The City, however, exercises authority over subdivision regulation in a city's fringe
area. Annexation is also primarily under exclusive rule of cities. Each of these activities,
however, affects both jurisdictions and produces a clear need for coordination and joint
administration. To that end, the City of Iowa City and Johnson County agree to the following
procedures for administration of land use regulations.
A.
Zonina Reaulation:
1.
Zoning regulation for all unincorporated territory will remain under the authority of
the Johnson County Zoning Ordinance and the provisions of Chapter 335, Code
of Iowa (1995), the enabling legislation for the County's zoning powers.
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