10-09-17 CC WS AgendaCITY OF SHOREWOOD
CITY COUNCIL WORK SESSION
MONDAY, OCTOBER 9, 2017
AGENDA
1. CONVENE CITY COUNCIL WORK SESSION
A. Roll Call
B. Review Agenda
2. TRAILS
3. ADJOURN
5755 COUNTRY CLUB ROAD
COUNCIL CHAMBERS
6:00 P.M.
Mayor Zerby
Johnson
Labadie
Siakel
Sundberg
ATTACHMENTS
City Administrator Memo
#2
MEETING TYPE
City of Shorewood Council Meeting Item WORK SESSION
Title / Subject: Trails
Meeting Date: October 9, 2017
Prepared by: Greg Lerud, City Administrator
Reviewed by: Larry Brown - Public Works Director, Marie Darling - Planning Director, Joe Rigdon -
Interim Finance Director, Alyson Fauske - City Engineer
Attachments: 2011 Trail Implementation Report
Policy Consideration: How does the council want to approach adding trails to the existing city system?
Background: The proposed 2018 CIP was presented at the August 28 work session. It was noted that
trails were not included in the CIP as funding was not available. It was recommended that a work
session be held to discuss what policy the city should adopt regarding creating new trails in the city.
Attached is the 2011 Trail Implementation report that was prepared by representatives from the city
council, staff, parks commission, planning commission, and the public. The report detailed the city's
trail extension priorities - breaking projects down into three time periods. Perhaps the biggest
weakness of the report was there were no costs tied to the various projects. The Smithtown Road trail
was completed in 2016, and that fund currently is showing a $770,000 deficit. Since the implementation
report was prepared, feasibility plans for the Galpin Lake Trail and Mill Street were prepared, but due to
costs of the trails, are not currently funded.
The city has contemplated using property tax abatement or a property tax abatement bond for property
taxes generated by the Minnetonka Country Club Development. Initial discussions were held with the
school district about both entities supporting an abatement that would provide funds for trails in
Shorewood and around Minnewashta Elementary. A public hearing has not been held, and as was
discussed at the budget work session in August, without knowing the pace of construction of homes in
the MCC development, it is not in the city's best interest to base any indebtedness on an anticipated
building pace.
All of these factors has lead to the conclusion that the trail implementation plan needs to be
reexamined.
Financial or Budget Considerations:
Significant. The CIP plan that was presented in August shows an estimated $10 to $11 million available
over the next seven years to do identified street and storm water work. There is presently no money in
the capital budget for trail construction, so the city is not able to even take advantage of funding
opportunities that require a match from the city. If the city were to stay on the schedule for street and
storm sewer repairs, that is approximately a $2 million budget shortfall over the same period.
Mission Statement: The City of Shorewood is committed to providing residents quality public services, a
healthy environment, a variety of attractive amenities, a sustainable tax base, and sound financial
management through effective, efficient, and visionary leadership. Page 1
Options:
Here are some questions that I pose to start the discussion:
1. Should the trail plans of the 2011 plan be reaffirmed? Enhanced? Scaled back?
2. Are there new "drivers" of where trails should go? (i.e. streets under reconstruction, busier
pedestrian corridors, or avenues that connect to Smithtown or to the LRT ?) What are the
priorities? Are trails only going to go where we can work with a financing partner?
3. What part does financing play in the decision? My understanding is the 2011 plan was
developed without strong consideration for financing. That is a great way brainstorm, but at
some point the reality of financing must enter into the equation. As Galpin and Mill Street have
shown, there is not an unlimited budget. It is important to have a realistic plan that can be
implements or dissolution will set it.
4. If more trails are desired, are there options the city can consider, such as at -grade walkways on
the less busy roads?
5. Regardless of any specific trail development schedule, at a minimum, should the city set aside
money in the trail capital fund so if outside funds, or a funding partner is identified for a future
trail, the city is prepared to take advantage of the opportunity to not have the cost entirely
borne by the Shorewood tax payers?
Recommendation / Action Requested:
This meeting is not a "one and done" proposition, but rather a starting point for how the city will
integrate the trail plans into the overall CIP.
Connection to Vision / Mission: The priorities from the implementation plan are still relevant today:
Health, safety, and general welfare. The City's comprehensive plan recognizes trails as not only
providing an alternative to the use of automobiles, but as an important recreational aspect of the
community.
Trail Plan Implementation Report
City of Shorewood
Prepared by the Ad Hoc Trail Committee
October 2011
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Ad Hoc Trail Committee:
Debbie Siakel, City Council
Laura Hotvet, City Council
David Hutchins, Planning Commission
Chair - Ed Hasek, Planning Commission
Steve Quinlan, Park Commission
Bob Edmondson, Park Commission
Mary Donahue, Resident at Large
Michael Dodd, Resident at Large
City Staff:
Brian Heck, City Administrator
Larry Brown, Public Works Director
Brad Nielsen, Planning Director
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I. Introduction
The Transportation Chapter of the Shorewood Comprehensive Plan includes a Trail Concept
Plan map that illustrates a potential system of trails for the City of Shorewood. The purpose of
that plan is to serve as a guide for development proposals and street construction projects, and
derives from goals, objectives and policies set forth in the Transportation Plan. The goal specific
to trails is worth repeating here:
"The City should establish a plan for an interconnected system of trails, enhancing the
safe movement of pedestrians, bicyclists and other modes of non - motorized travel."
Although the City constructed several trail segments of varying designs over the years, a drastic
reduction in land development and limited financial resources have resulted in little trail
construction in the past few years.
The City's recent discussions on sustainability sparked renewed interest in implementing the
Trail Concept Plan. The City has elected to participate in the Minnesota GreenSteps Program
sponsored by the Minnesota Pollution Control Agency. One of the "best practices" set forth in
the program includes the promotion of walking and biking.
To this end, the Shorewood City Council established an Ad Hoc Trail Committee, consisting of
two Planning Commission members, two Park Commission members, two members of the City
Council and two at -large residents. The Committee was charged with reviewing the current Trail
Concept Plan, prioritizing trail segments to be constructed, and recommending implementation
strategy — primarily how the construction of trails could be incorporated into the City's Capital
Improvements Plan.
Five -foot concrete walk - Minnewashta Elementary
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It should be noted that the
term "trail ", as used in the
Comprehensive Plan and in
this report, is intended to
include the entire gamut of
pedestrian/bicycle facilities in
Shorewood. Considerable
thought has been given as to
whether these facilities
should be called pathways,
sidewalks, trails, "linear
pedestrian ways ", bike paths,
etc. The consensus is that the
term trails addresses all of
the various types of facilities.
Further, a trail may simply be
a designated route along an
existing street in some cases.
II. Comprehensive Plan Update
The Trail Committee reviewed the Transportation Chapter of the Shorewood Comprehensive
Plan relative to Bicycle/Pedestrian Trails and found it to be up -to -date and pertinent. As such,
the Committee does not propose changes to the text of the Comprehensive Plan. The Committee
does, however, suggest revisions to the Trail Concept Plan map as follows:
• The title, Trail Concept Plan, should be changed to Trail Plan
• A trail should be added along Strawberry Lane
• A trail should be added along Eureka Road
• The trail south of Highway 7 on Covington Road should be deleted
• The segment of trail on Manor Road, south of St. Albans Bay Road should be deleted
• Consider changing the legend on the map from "Possible Trail" to Future Trail
The proposed changes are illustrated on the map on the following page.
Six -foot bituminous trail near Silverwood Park
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III. Trail Plan Priorities
"Health, safety, and the general welfare" is a phrase that drives much of what the City does.
These words are quite pertinent in the planning of trail facilities. The Shorewood
Comprehensive Plan recognizes trails not only as providing an alternative to the use of
automobiles, but as an important recreational aspect of the community. The Trail Plan map,
found in the Transportation chapter of the Comprehensive Plan, shows the location of existing
and proposed trails in Shorewood. Aside from a process for public involvement, the
Transportation Plan lacks an implementation strategy for the construction of trails.
In identifying trail priorities, the Committee considered the following issues:
Health. Walking and bicycling are recognized as contributing to the overall health of the
community.
Safety. In order to promote walking and bicycling as healthy activities, it is critical that
these activities be made as safe as possible. In this regard the separation of trail facilities
from streets should be pursued to the extent feasible.
Connectivity. It is important that trails go somewhere. Providing safe routes to schools
has been identified as a top priority, especially in light of School District policy that
eliminates bussing for students within one mile of school. Connecting existing trails to
other trail systems (i.e. the LRT Regional Trail and trail systems in other communities)
adds miles to the system that Shorewood can provide on its own. Lastly, it is important to
tie neighborhoods to other neighborhoods and to other destinations within the community.
With these criteria for guidance, the Trail Committee broke the Trail Plan into four priority
groups. It was suggested that Priority I trails would be completed in the next three to five years.
Priority II trails would be scheduled for years 5 -10 and Priority III trails would happen in 10 -15
years. Priority IV trails would not be programmed until after 15 years. Following is a brief
description of the priorities:
Priority I (3 -5 years)
County Road 19, Smithtown Crossing to LRT Trail. This segment is part of the County
Road 19 Corridor Study, adopted in 2003. Its high priority is based on availability of
existing right -of -way, anticipated lack of neighborhood resistance and its function of
connecting the Smithtown Crossing and Shorewood's civic campus with the LRT Trail.
2. Smithtown Road, Shorewood/Victoria boundary to Minnewashta Elementary School.
This segment enhances safety for people on the west end of Shorewood to walk or bike
to school and connects to the trail system in Victoria. There appears to be some
neighborhood support for this connection.
Mill Street, Shorewood /Chanhassen boundary to Shorewood/Excelsior boundary. This
segment connects Shorewood residents living south of Highway 7 with both the City of
Excelsior and the Chanhassen trail system. Again some level of neighborhood support
has been expressed.
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4. Galpin Lake Road, Shorewood /Chanhassen boundary to Shorewood/Excelsior boundary.
(See 3. above).
Priority 11 (5 -10 years)
Lake Linden Drive to Highway 7/41
intersection. This segment is a short
connection between the existing trail
on Lake Linden with the trail system
to the south in Chanhassen.
2. Smithtown Road, Minnewashta
Elementary School to Smithtown
Crossing. This segment is intended
to enhance safety for residents east
of the Minnewashta Elementary
school, connecting with the existing
sidewalk system at Smithtown
Crossing and providing a loop to the
LRT Trail.
Country Club Road and Yellowstone
Trail, Smithtown Crossing to Lake
Linden. This segment connects the
existing sidewalk on Lake Linden
Drive with the existing pedestrian
circulation system at Smithtown
Crossing.
4. County Road 19, Shore Road to
Shorewood/Excelsior boundary.
This segment extends the sidewalk
End of the trail. Six -foot concrete — Victoria.
system at Smithtown Crossing eastward toward Excelsior, providing another loop to the
LRT Trail.
5. Strawberry Lane, West 62nd to Minnewashta Elementary. The Committee recommends
adding this segment to the Trail Plan. It provides pedestrian/bicycle access from
adjoining neighborhoods to the Minnewashta Elementary School.
6. Eureka Road, north. This segment has been added by the Committee and provides
neighborhoods north of Smithtown Road with access to the Minnewashta Elementary
School and to the LRT Trail.
Priority III (10 -15 years)
St. Albans Bay Road, Manor Park to Highway 7. This segment links Manor Park to the
South Shore Skate Park and provides an extension connecting across Highway 7 to the
sidewalk system on Old Market Road
2. Howards Point Road, Edgewood, Grant Lorenz loop. This proposed loop would provide
area residents with a connection to Smithtown Road and quite possibly could be a
designated route on existing streets.
Vine Hill Road, existing trail north to State Highway 7. This segment provides safe
access for the Shady Hills neighborhood along a relatively busy collector street.
Priority IV (15+ years)
Link east of Public Safety facility, County Road 19 to LRT Trail. Assuming topography
issues can be overcome, this segment provides a link and a loop from County Road 19 to
the LRT Trail.
2 Timber Lane, County Road 19 to LRT Trail. This short segment of trail provides one
more link/loop from County Road 19 to the LRT Trail.
3. Enchanted Lane, Minnetrista border to Shady Island bridge. This segment may be
limited to road and right -of -way improvements to enhance walking and bicycling.
The Trail Plan map on the following page color codes the trail system into the four priority
groups.
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IV. Draft Trail Capital Improvement Plan
(Reserved for Future Use)
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V. Public Participation
The Trail Committee strongly believes and supports getting residents involved in the trail
development process and making sure the affected neighborhoods and property owners receive
as much information about the projects as possible. To that end, the Committee suggests using
several approaches to disseminate information, gather feedback, and garner support for the
development of the trail infrastructure in the city.
City News Letters: The City produces a monthly newsletter, the ShoreReport, and distributes it
to each household in the community. This is a static method the Committee can use to provide
general information on the planning process and as a method to direct interested residents to
additional resources and information.
City Website: More detailed
information on the trail plan can be
placed on the website. Some items
to include on the website after
acceptance of the plan: a map of the
plan identifying trail segments by
priority, a listing of segments by
priority, information on how
priorities were determined, proposed
budget information, pictures of trail
in other communities, and
information on the benefits of trails.
Neighborhood Meetings: The
Committee or select members of the
Committee would meet with
individual neighborhoods affected
by planned trail segments. This
provides an opportunity for the
neighborhood to ask questions, walk
the proposed route, and provide
input and suggestions on material,
location, potential hazards, etc.
Before these meetings, it might be
beneficial for the Committee to
identify a neighborhood "champion"
to help organize the meeting, walk,
and be a contact person on behalf of
the neighborhood.
These neighborhood meetings will Six -foot bituminous trail - Covington Road
also be beneficial in identifying any potential issues that need addressing.
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Direct Mailing: The City could prepare a direct mailing to residents in the affected area
outlining the proposed project and include specific information on the planned design, location,
benefits, drawbacks, and address common questions such as maintenance and winter shoveling.
These mailings might be more beneficial a couple weeks before a planned neighborhood
meeting.
Public Hearing: This is a more formal and traditional method used to garner residential input
and may not be the most effective communication and public participation methodology. These
forums are generally poorly attended unless the issue is contentious and controversial. This is
not the recommended method for gaining public input or support for the program and plan.
Targeted Polling: This method
involves sending a poll or survey
questionnaire, either paper or
electronic, to the impacted residents
or households asking specific and
targeted questions related to the issue
of trail construction. This tool can be
used prior to a direct mailing and /or
neighborhood meeting to gather basic
information on feelings and possible
issues related to the implementation
of the trail plan.
Face to Face individual meetings:
This process involves Committee
members meeting with one or two
residents in the neighborhood, or
having the "champion(s)" and a
Committee member, meeting one on
one, or with a couple of neighbors, to
informally talk and promote the idea
of the trail plan, the benefits of a
comprehensive trail system, to answer
questions, and provide information
and additional resources. The benefit
of this method — it is not "the
government" promoting its own plan,
but residents who are also affected
individuals promoting the plan.
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VI. Trail Implementation Process
This outlines the general process the city will follow in implementing the trail plan.
• July — September the park commission reviews the trail plan and available funding then
makes recommendations to the Council.
• December, the Council adopts the final Capital Improvement Plan for Trails as indicated
in the plan and /or recommended by the Park Commission.
• During the months of January — April staff prepares rough cost estimates for the project
based on general design standards e.g. 6' bituminous, researches easements, conducts
preliminary review with the Watershed District, and identifies stakeholders.
• May — August the proposed plan is reviewed by the park commission and neighborhood
meetings and walks are held to go over the project, answer questions regarding funding,
timing, maintenance, etc.
• September — December staff prepares final plans and specifications for the trail segment
based on feedback provided by residents and park commission.
• January — February staff publishes plans and specifications trail construction.
• March — April staff provides recommendation to Park Commission on lowest responsible
bidder and Park Commission provides recommendation to Council to proceed with award
of the project.
• May — August trail construction underway and completed.
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