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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 5~ ~Yk-~ 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 VI 'Dn::'C"lno 80l)!O /10 I 0 :£ Wd 0 £ (JV¡'¡ 00 03/\i3;J3d 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 ~ D~ ~Yk-~ 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 ( -'-"" c ~ E "5 ~ « t:F,6:iJ~ ~-~~;t::c.: J,' ~,¡ ll-r..K_:-~h~", /V, ' ,~~:;:r<jl ~ /:,' ,'~ l k /",". i ::CC-':'f-j~~ î'C:~';=rl ,¡' -L--=-r ~t- " i1Jp~':,"" :~,"'t~,. '~,~'t:^,. ',',;~,1!r~1-I)i~~,1t/-<-~:,...' ~ ,.'": 'í-~ "-'~H~J"~ri' :~~.rFf&!Y' :t~,*i/'J':r-~ , ' ,i, u~7WJ'~-.J:I:."d=:-l::tJ "~,U'ff-j~,,~ ~ i~ +~ t1"J' ,- ~ - V', ï' I I '1-:1 -Ò'~':'J ,,')(ImJ~ \, , , ~j~, ~ '~i...'rL' J~",h- ~~l~oJ'J-1. !l-~¿-'7~tJ'<i..: .) ~~ ~ ,~.),; ~.,L f ~r;~C --.:, ~ ~'! i ~. 51 r1 '" ~ -~-j I , ~. ~.--. ,'1 'H ( c.;::.- Q\#.JL2 'f! ~~I 'f~;~l\,~ J' '. / ',' ~'~r~--.i'-,,~ !{, \~~ : ~.~ ;~~-,'~'~ : ( J . 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"I.." x,---r ..,I_)o~,* \ ft :;: -; +-" ',"" 'i."" :6),"'\> U,I,-L./'" '-":"'-/-~\-i"'-"aõ .. ~!..... .1", ",-'c '~W/r-l,_.t:;~'T(,;i-~--, X;.IGI~ õ ~\ JLt -:~:S1FY~¡l~" -¡~ r~,: r i:'4""'~;c ",' 1~ 0 ~ ~ ~ ~ ¿U~:,,[~-,-:,~,","'ë~ipf-.tlj",1,1,II'~,l¡,¡-.¡,'~~;¡j',-,.'-"'F'""',.),,~~.t\',\r,,~, ',",'---, "',,':\¡~,,~tr,J"'~,.,~,.~~,'-l ~ ~]~I !, jj,= ~I i..J" \ 11 ' '7<:r-*,' 1/> r.+ . ¡ ~'t-:-"~I~~ - ':-: DD~' - , - I ' i!---.............. ~, ~i' /" ¡¡;~'7--..>l,:-:-+ 'f',.¡':' - :l~c,J . '- / ':\»I'! "r\l-'-~ l., ~'-' T;'\\,t !-'~ -: . . r:..JI~{LVq--^- \rf,~,(1..\{. .,~«{)- ~" vf "1) \..1J" L{, 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. ( 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 u/~ 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 ( -'-"" " , - 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 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 - 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 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. 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