HomeMy WebLinkAbout2022-11-10 Council Work Session Agenda PacketCouncil Work Session Agenda
November 10, 2022 – 5:30 pm
1.Call to Order / Roll Call
2.Stormwater Area Charge*
3.Unscheduled Items
4.Adjournment
*Includes Materials - Materials relating to these agenda items can be found in the house agenda packet
book located by the Council Chambers entrance, or online at the City’s website at www.corcoranmn.gov.
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Memo
To: Kevin Mattson, PE
Public Works Director
From: Kent Torve, PE City Engineer
Steven Hegland, PE
Project/File: 227704423 Date: November 4, 2022
Reference: Draft Stormwater Area Charge
Background
The City authorized Stantec to prepare an analysis and help develop a Stormwater Area Charge for
consideration by the City Council. A Stormwater area charge would be implemented similar to the Area
Charges currently used for the trunk water and sanitary sewer systems in which a fee is charged, typically
on a per acre or per unit basis, at the time of development.
Stantec has prepared a draft report, which is attached to this memo, for the City Council to review to better
understand the background and approach that was taken and developing the potential Area Charge.
Stantec will provide a brief presentation at the beginning of the work session and then be available for
questions about how the area charges were developed and how they may be used by the city moving
forward.
Summary
With development, impervious surfaces increase runoff, sometimes significantly, in its transition from a
natural to urbanized state. The heavy soils in Corcoran are prohibitive of infiltration and therefore runoff
continues downstream creating volume, water quality, and environmental challenges as it continues along
the conveyance systems. While development is required to meet the City, Elm Creek Watershed
Management Commission, and other regulatory requirements, they do not always fully account for the
challenges that this additional volume creates on the overall stormwater system.
Additionally, development creates the need for of our transportation and infrastructure systems to support it.
With this growth comes additional costs related to stormwater management of these systems.
The stormwater area charges were developed on a watershed basis, rather than a City wide basis, so that
the costs to manage and convey the runoff within each of these conveyance networks was more equitably
assigned to the development in those area.
The work included taking a broad review of the City’s water resource responsibilities to better understand
what some of the current and future budget concerns are.
We reviewed and summarized the current funding approaches and most importantly identified different
types of projects that could be funded with a Stormwater Area Charge. During the work session we will
present and discuss potential types of projects or uses for the funds, some of which are identified in section
November 4, 2022
Kevin Mattson, PE Public Works Director
Page 2 of 2
Reference: Draft Stormwater Area Charge
5.2 of the report. We ask the Council to review the types of projects and uses presented and provide
additional thoughts and ideas on what types of uses should be considered.
One of the challenges in implementing an Area Charge is that some of the items the City may wish to fund
may be more appropriately funded through a stormwater utility fee which is not being considered at this
time. A stormwater utility fee is a routine fee, similar to a garbage or electric fee in which the City charges
all users a fee to maintain the stormwater system. While common in other communities, it may be difficult to
implement across the city at this time with the wide variability in land uses and development phasing.
City Council Request
We request the City Council reviews the draft report on the Stormwater Area Charges and provide feedback
on their vision for types of uses and goals of a stormwater program. Staff can then take that feedback and
try to find ways to tweak the Area Charges and continue implementing the city stormwater program.
Next Steps
Following the work session, we will take input from the Council and bring back refinement of the Draft report
to a future Council meeting.
Implementing a charge would require the development of a draft policy, draft ordinance and creation of a
stormwater management fund.
STORMWATER REPONSIBILITIES AND
FUNDING OPTIONS
City of Corcoran
November 3, 2022
Prepared for:
City of Corcoran
Prepared by:
Stantec Consulting Services Inc.
1800 Pioneer Creek Center
Maple Plain, MN 55363
Phone: 763-479-4200
Project Number:
227704423
Project Number: 227704423 i
Table of Contents
1.0 INTRODUCTION.............................................................................................................1
2.0 SUMMARY OF WATER RESOURCE RESPONSIBILITIES..........................................2
2.1 Guidance – Local Surface Water Management Plan....................................................................2
2.2 NPDES Program/MS4 Permit .......................................................................................................2
2.3 FEMA ............................................................................................................................................2
2.4 Wetland Administration .................................................................................................................3
2.5 Impaired Waters (MPCA)..............................................................................................................3
2.6 Watershed Management Organization (WMO).............................................................................3
3.0 CURRENT CITY APPROACH........................................................................................4
3.1 Project Examples ..........................................................................................................................4
3.2 Development Funded Work...........................................................................................................4
3.3 City/Grant Funded Regional Projects............................................................................................4
3.4 Funding .........................................................................................................................................4
4.0 PROJECT IDENTIFICATION..........................................................................................5
5.0 SUSTAINABLE IMPLEMENTATION AND FUND USES...............................................6
5.1 Stormwater Area Charges.............................................................................................................6
5.2 Fund Uses.....................................................................................................................................6
6.0 SUMMARY OF OPTIONS...............................................................................................7
6.1 Option A—Status Quo...................................................................................................................7
6.2 Option B – Stormwater Area Charges...........................................................................................7
6.3 Option C-- Stormwater Area..........................................................................................................7
6.3.1 Area Charges and City-Wide Utility Area Charges........................................................................7
7.0 RECOMMENDATION AND NEXT STEPS.....................................................................8
Appendices
A—Local Surface Water Management Plan CIP
B—Headwaters of Rush Creek CIP
Stormwater Reponsibilities and Funding Options
1.0 Introduction
Project Number: 227704423 1
1.0 INTRODUCTION
Changes in land use impact all aspects of water resources due to creation of additional impervious
surfaces that increase volume and modify the existing hydrology. Council authorized the potential
development of a stormwater area charge for consideration by the City. This process typically involves
summarizing the various City responsibilities related to water resources, current management, and future
options. Many cities have stormwater charges to implement projects and staffing to offset the impacts of
additional volume and water resources as a result of development. In Minnesota the oversight system is
complex with many agencies and at the local level these responsibilities (MS4, wetlands, plan review,
WMO participation, FEMA) are undertaken by the City with infrastructure projects, resident activities,
development management, education, or other duties as mandated by State and local agencies.
The tasks involved in the approved scope include a review of the water resource activities, options for
funding the activities, options for a stormwater charge for land use changes (applied both within the
MUSA and rural areas) and reviewing surrounding community charges. The approach is challenging
because Corcoran has three separate MUSA/urbanizing areas with sewer and water (Metro Urban
Service Area), and parts of the MUSA are rural development (Southwest Corcoran). The developing
“fringe” along with floodplains and rural conveyances are a few of the challenges. The remaining areas
outside the MUSA will continue to have rural development patterns.
Corcoran watersheds are shown on Figure 1 and the majority of drainage is to the Rush Creek and South
Fork Rush Creek watersheds. Other subwatersheds include Lake Sarah, Crow River and Elm Creek.
Stormwater Reponsibilities and Funding Options
2.0 Summary of Water Resource Responsibilities
Project Number: 227704423 2
2.0 SUMMARY OF WATER RESOURCE RESPONSIBILITIES
Minnesota citizens value water resources and therefore many responsibilities are implemented at State
and Federal level but funded and managed at the local level. The paragraphs below further define
responsibilities where area charges may provide additional funding in addition to the General Fund.
2.1 Guidance – Local Surface Water Management Plan
Corcoran has a statutorily required Local Surface Water Management Plan (LSWMP) that was reviewed
by Met Council, Elm Creek Watershed Management Organization (WMO), DNR and ultimately was
approved and incorporated into the 2040 Comprehensive Plan. This 2018 LSWMP is a good resource for
the different programs involved in Corcoran including floodplain, subwatershed delineations, etc. The
LSWMP Table of Contents is attached (Attachment A). The LSWMP also includes a Capital Improvement
Plan where projects are listed in concept for guidance in planning capital expenditures at the City level.
This CIP shows significant projects have been accomplished (i.e., Maple Hill Wastewater Plant
connection to MCES, Downtown Stormwater Pond Retrofit, MS4 permit efforts, etc.) with other projects
remaining and funding uncertain. The overall LSWMP will be updated as part of the 2050 Comprehensive
Plan.
2.2 NPDES Program/MS4 Permit
Federal regulation began in earnest in the early 1970’s with implementation of the Clean Water Act that
expanded earlier programs. This legislation focused on “point sources” or “end of pipe” where industries
were required to install treatment systems to meet standards prior to discharging to waterways. The EPA
program has evolved over decades and expanded to include “non-point” sources, which began with the
large metro areas in the US and now covers urbanized cities and counties including Corcoran. In
Minnesota, the MPCA administers the NPDES program for the EPA. Day to day activities involve
management of stormwater and erosion control practices within developments (paid for through escrow).
and annual activities are reporting to the MPCA. A new five-year permit was recently issued involving the
Planning Commission and a formal City process.
2.3 FEMA
FEMA is a well-known agency responsible for disaster response, emergency preparedness, planning,
floodplain management and funding. In regard to flooding, FEMA delegates authority for the National
Flood Insurance Program (NFIP) to the Department of Natural Resources (DNR) and in turn, the DNR
delegates management responsibilities down to the municipal or county level.
Corcoran has previously utilized DNR assistance with adopting the model floodplain ordinance to meet
State requirements. Most recently, a HUC 8 study to update flood hazard models is underway where the
City and watershed are commenting on the preliminary DNR data, models, and maps.
Stormwater Reponsibilities and Funding Options
2.0 Summary of Water Resource Responsibilities
Project Number: 227704423 3
Corcoran (with DNR assistance) is responsible for administering:
Floodplain district boundaries;
Development standards within the floodplain districts (i.e., general, floodway, flood fringe);
Subdivision standards within the floodplain districts;
Standards for railroads, bridges, public and private utilities, manufactured homes, and
recreational vehicles;
Administrative procedures; and
Non-conformities;
2.4 Wetland Administration
Corcoran is administering the Wetland Conservation Act in Minnesota. The regulating State agency is
Board of Soil and Water Resources that was created in late 1980’s for the soil and water conservation
districts, WMOs and counties. More commonly these activities are known by the acronyms as Corcoran is
the “LGU” for “WCA” under “BWSR”. This responsibility is the highest visibility for staff and consultants
with day-to-day activity as both developers and residents have interests that may (or may not) affect low
areas that are technically wetlands. As communities increase land activity on the urban/rural fringe of the
Metro, applying the State regulations become more common. Corcoran and the WMO have their own
regulations that apply to buffers based on the quality of the wetland. These buffers protect the wetland
edge and will minimize unplanned encroachment into the regulated portion of the wetland itself.
Agricultural activities are regulated separately than development and the system becomes complicated.
2.5 Impaired Waters (MPCA)
TMDL (Total Maximum Daily Loads) are the acronym for addressing impaired waters and these studies
and lake and stream improvement plans are increasingly being linked to the NPDES/ MS4 permit.
Increasing City costs can be expected for the both the MS4 program and TMDL improvements.
2.6 Watershed Management Organization (WMO)
Land use changes over 1 acre are reviewed by Elm Creek or Pioneer Sarah Watershed Management
Organization (WMO). These WMO regulations are event-based or front-end approvals, and the
implementation of a City area charge will create funds to allow the City to be more visionary and address
the long-term impacts of volume on floodplain, drainage conveyance, wetlands, and water quality.
Stormwater Reponsibilities and Funding Options
3.0 Current City Approach
Project Number: 227704423 4
3.0 Current City Approach
Impervious surfaces increase runoff by a worst case of up to 10-fold from forest to urbanized. Converting
farmland is less impactful, however the volume generated will be significant for Corcoran watersheds as
the City continues to develop. The heavy soils of Corcoran are prohibitive of infiltration and therefore
runoff travels offsite (downstream) creating volume, quality, and environmental changes along with stress
on existing conveyance systems and increased water elevations/floodplain. Volume generation is
independent of location and topography since both upland and lowland contribute volume to the
watershed. For example, the volume generated adjacent to a larger wetland has similar impact as volume
generated from upstream (high ground) areas.
3.1 Project Examples
The following project examples are intended to show development(s) under current City process that
have been reviewed for offsite impacts and developers are currently performing or funding the work. An
outcome of an area charge would modify this process where City manages water resources beyond the
development boundaries.
3.2 Development Funded Work
Conveyance and infrastructure studies (Garages Too (engineering only), Rush Creek Reserve,
and Ravinia)
Floodplain management (Tavera 4th and Ravinia)
Offsite engineering and work (Rush Creek Reserve, Bass Lake Crossing)
3.3 City/Grant Funded Regional Projects
The City has conducted water resource related activities or been asked to participate in regional work
historically and moving forward this would be eligible for stormwater area charge funding.
Subwatershed Assessment (SWA) study for Upper Rush Creek
Downtown Pond Cleanout
Corcoran Trail conveyance improvements (culverts and ditching)
City Center Drive/St. Therese facility (cost share)
Medina/Loretto regional pond at Loretto ballfield complex (Corcoran did not participate).
3.4 Funding
Currently Corcoran uses three funding methods; General Fund, development funds, and infrastructure
projects as the source for any and all water resource and drainage related projects. The current City
budget for stormwater is $15,000. A few grants have been obtained (a Subwatershed Area Assessment
for Headwaters of Rush Creek and some reimbursement was received from the WMO for the water
quality portion of the retrofit of the Downtown Regional Pond).
Stormwater Reponsibilities and Funding Options
4.0 Project Identification
Project Number: 227704423 5
4.0 Project Identification
Projects were identified from needs related to recent activity and historical areas of need and are shown
on Figures B-1 and B-2. The categories for projects were categorized into;
Conveyances (tributaries, neighborhoods, road crossings, stream)
State Aid and County Roads,
Linear projects,
Easements, and
Studies, modeling, engineering and permitting.
Other eligible projects may include the capital improvements listed in the Local Surface Water Plans and
the Headwaters of Rush Creek Subwatershed Assessment. The project eligibility would be related to the
City’s future policy as related to the uses given in following discussion on implementation.
Stormwater Reponsibilities and Funding Options
5.0 Sustainable Implementation and Fund Uses
Project Number: 227704423 6
5.0 Sustainable Implementation and Fund Uses
Staff, engineering and legal have discussed options for funding the increasing demands of water
resources management within Corcoran. In addition to the General Fund, the option of a stormwater area
charge is detailed in following discussion to achieve a more consistent sustainable water resource
implementation program.
5.1 Stormwater Area Charges
Statutes allow for creation of a stormwater utility fund which would involve an ordinance similar to water
and sewer and subsequently the setting of rates and collection of area charges. The funds can be from
two sources—monthly user and/or land use change development area charges.
Development based area charges can be determined based on estimated costs for projects such as
floodplain, volume conveyance, wetland, natural resource enhancements, and improvements to meet
current or future regulatory needs. Table B-1 shows a list of projects involving MUSA and non-MUSA
projects that are foreseen to be issues as the City develops. Buildable acres in Table B-2 show the
remaining buildable acres in the different watersheds, although these values may change by the time of
are charge implementation.
The buildable acres approach is equivalent to the Trunk Line Area Charge (TLAC) used for sewer and
water and is applicable here with two variations. Stormwater volume is related to intensity of development
therefore:
Rural residential development will be limited to an equivalent residential unit and
More intense development (above single family residential) such as mixed use, commercial,
industrial) would have the buildable acre charge increased by 10% due to the additional volume
generated.
5.2 Fund Uses
The funds could be utilized for activities that would further refined in an upcoming policy and ordinance
but for discussion purposes these include;
Projected uses include:
Public ROW improvements (turn lanes, road expansions, etc.) for treatment and management
Floodplain management
Regional flood storage or stormwater treatment
Conveyance
Easements for drainage
Support staff time and services along with engineering studies, modeling, and planning
Deficient infrastructure to support conveyance from additional drainage
Cost share or participation in public cooperative projects/grants
Future regulatory requirements
MS4 compliance
Stormwater Reponsibilities and Funding Options
6.0 Summary of Options
Project Number: 227704423 7
6.0 Summary of Options
Identified options for sustainable implementation include:
6.1 Option A—Status Quo
General levy would continue to provide necessary funding for administration and drainage improvements
funded on project-by-project basis.
6.2 Option B – Stormwater Area Charges
Implement a buildable acre area charges for change in land use to create a fund for local and watershed
improvements. Developments in both the rural and MUSA area could pay a area charges during the land
use change process as part of City area charges schedule. It can be noted that those area charges would
be applied on either a watershed basis or a direct downstream improvement. A list of projects was
created (Attachment B) to provide concept area charges cost.
Watershed Estimate
Rush Creek $2.2M at $1,674/buildable acre
South Fork Rush Creek $9.1M at $4,175/buildable acre
Sarah Creek $0.5M at $1,833/buildable acre
Elm Creek $0.4M at $2,278/buildable acre
Crow River No area charge identified
These costs (at a first draft level) fall within other local cities that charge area charges ranging from
$1,500 to $7,500, and methods vary for calculating area charges. Otsego utilizes the watershed based
area charges, other local cities were same area charges across the individual City. Commercial,
industrial, mixed use and high density would have a 10% increase for the additional impervious compared
to single family.
6.3 Option C-- Stormwater Area
6.3.1 AREA CHARGES AND CITY-WIDE UTILITY AREA CHARGES
Initiate the process for creating (by ordinance) a utility fund for managing water resources within the entire
City boundaries. Option B would be expanded to a parallel program to include all properties including
rural properties that would be charged based on a schedule of stormwater contribution. Typically, this is
on a Residential Equivalent Unit basis (for impervious) and for example one urban lot is 1 REU and a
rural homestead of 10 acres with one house is also 1 REU. Agricultural acreage is determined on tillable
acreage. Examples from other cities exist for consideration if this option is selected for more detailed
analysis. With a Utility Area charges, the City could roll in more of its operational costs – for example the
annual watershed dues, the cost of street sweeping, maintaining the storm sewer/ditch system, etc. It is
more broadly applicable but is more administratively burdensome to set up and maintain. Also, it is more
politically charged because it applies to all properties, regardless of land use, owner (including public-
owned), and applies whether or not a property owner can see some visible drainage infrastructure from
their front door.
Stormwater Reponsibilities and Funding Options
7.0 Recommendation and Next Steps
Project Number: 227704423 8
7.0 Recommendation and Next Steps
Development, age drainage infrastructure, urban expansion and increasing regulatory requirements are
limiting the City’s ability to maintain the expected level of service to residents. Therefore, staff is
recommending pursuing further refinement of Option B, and requesting the Council give direction. Some
topics for further discussion include:
Review the watershed based approach for project funding
Review administrative and financial efforts to manage a stormwater fund
Refine the project list
Update the buildable acre cost prior to implementation
Develop a draft policy
Develop a draft ordinance
These steps could begin immediately for implementation in 2022.
Stormwater Reponsibilities and Funding Options
Error! No text of specified style in document.
Project Number: 227704423 A-1
TABLE
FIGURE
Anoka
County
Carver
County Dakota
County
Hennepin
County
McLeod
County
Ramsey
County
Sherburne
County
Stearns
County
Wright
County
#*
#*
#*
#*
#*
!.
!.
!.
!.
!.SouthForkRushCreekRu s h CreekRushCreek
S outh ForkRu s h C r e e k
456719
456730 456730
4567116456710
456719
456750
456710
South Fork
Rush Creek
Rush Creek
Sarah Creek
Elm Creek
Crow River
Jubert
Lake North
Jubert
Lake South
CR19/HWY 55
66 Ave S.
Maple Creek
Maple Hill
Abilene Lane
Corcoran
Trail South
South Fork
Rush Creek
Steig Farm
North
CASH 116
Bellweather
Steig Road
County
Road 30
Schutte
Bridge
County
Road 10
Hackamore
Road
Scott Lake
Horseshoe
Bend
Cain Road
Bechtold
Disclaimer: This document has been prepared based on information provided by others as cited in the Notes section. Stantec has not verified the accuracy and/or completeness of this information and shall not be responsible for any errors or omissions which may be incorporated herein as a result. Stantec assumes no responsibility for data supplied in electronic format, and the recipient accepts full responsibility for verifying the accuracy and completeness of the data.
Client/Project
Figure No.
Project Location
Title
"($$¯V:\2277\resource\gis\Corcoran\Pro\watershed_map\watershed_map.aprx Revised: 2022-04-19 By: jshuckLegend
Corcoran Boundary
Watersheds
MUSA 2040
County Parcels
County/State Aid Road Corridors
Conveyance (Major Creek)
Conveyance (Tributary)
Potential Project Locations
Conveyance
!.Culvert
#*Road/Bridge
Municipal State Aid Street
Page 1 of 1
Notes
1. Coordinate System: NAD 1983 UTM Zone 15N
2. Data Sources: Hennepin County, MnDOT
3. Background: Hennepin County 2020 Imagery
(At original document size of 11x17)
1:42,000
0 1,750 3,500
Feet
Prepared by JCS on 2022-04-19
Corcoran, Hennepin Co., MN
City of Corcoran
Stormwater Fee Analysis
Corcoran Watersheds
B-1
Anoka
County
Carver
County Dakota
County
Hennepin
County
McLeod
County
Ramsey
County
Sherburne
County
Stearns
County
Wright
County
")
")
")
")County DitchNumber ThreeS o u t h F o r k RushCreek
County Ditch
NumberS ixteenRushCreekRushCreek
456719
456730 456730
4567116456710
456719
456750
456710
Willow D r
Schutte Rd
Kalk RdLarkin Rd
RollingHillsRdStie
g
R
d
PioneerTr Trail Haven RdSouth Fork
Rush Creek
Rush Creek
Sarah Creek
Elm Creek
Crow River
Schutte
Trail Haven
Cain Road
Shannon Lane
Disclaimer: This document has been prepared based on information provided by others as cited in the Notes section. Stantec has not verified the accuracy and/or completeness of this information and shall not be responsible for any errors or omissions which may be incorporated herein as a result. Stantec assumes no responsibility for data supplied in electronic format, and the recipient accepts full responsibility for verifying the accuracy and completeness of the data.
Client/Project
Figure No.
Project Location
Title
"($$¯V:\2277\resource\gis\Corcoran\Pro\watershed_map\watershed_map.aprx Revised: 2022-04-19 By: jshuckLegend
Corcoran Boundary
Watersheds
MUSA 2040
County Parcels
")Municipal State Aid Bridges
Municipal State Aid Street
Conveyance (Tributary)
Page 1 of 1
Notes
1. Coordinate System: NAD 1983 UTM Zone 15N
2. Data Sources: Hennepin County
3. Background: Hennepin County 2020 Imagery
(At original document size of 11x17)
1:42,000
0 1,750 3,500
Feet
Prepared by JCS on 2022-04-19
Corcoran, Hennepin Co., MN
City of Corcoran
Stormwater Fee Analysis
Corcoran State Aid Roads and Bridges
B-2
456710
456730 456730
4567116
456719
456750
456710
South Fork
Rush Creek
Rush Creek
Sarah Creek
Elm Creek
Crow River
Disclaimer: This document has been prepared based on information provided by others as cited in the Notes section. Stantec has not verified the accuracy and/or completeness of this information and shall not be responsible for any errors
or omissions which may be incorporated herein as a result. Stantec assumes no responsibility for data supplied in electronic format, and the recipient accepts full responsibility for verifying the accuracy and completeness of the data.
"($$¯V:\2277\resource\gis\Corcoran\Pro\watershed_map\watershed_map.aprx Revised: 2022-03-02 By: jshuckLegend
Corcoran Boundary
Watersheds
County Parcels
Non Buildable
Future Land Use
Rural/Ag Residential
Existing Residential
Low Density Residential
Medium Density
Residential
Mixed Residential
High Density Residential
Rural Service/Commercial
Commercial
Mixed Use
Business Park
Light Industrial
Public/Semi-Public
Parks/Open Space
Agricultural Preserve
(Date of Expiration)
Open Water
Developed/Developing
0 1,500 3,000
Feet
Buildable Acres by
Watershed