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2017-11-30 Work SessionPage MW 9-25 26-28 Kodiak Island Borough Assembly Work Session Thursday, November 30, 2017, 6:30 p.m. School District Conference Room Work Sessions are informal meetings of the Assembly where Assembly members review the upcoming regular meeting agenda packet and seek or receive information from staff. Although additional items not listed on the work session agenda are discussed when introduced by the Mayor, Assembly, or staff, no formal action is taken at work sessions and items that require formal Assembly action are placed on regular Assembly meeting agenda. Citizen's comments at work sessions are NOT considered part of the official record. Citizen's comments intended for the "official record" should be made at a regular Assembly meeting. 1. CITIZENS' COMMENTS (Limited to Three Minutes per Speaker) 2. AGENDA ITEMS a. Manager's Consolidation Report rA 113017 Managers Consolidation Report - Pdf b. Killarney Hills - Review Proposed Planning Process A Output Document (AS - 0709) - Pdf C. Future Discussion Items A Discussion Item List (Updated) 3. MANAGER'S COMMENTS 4. CLERK'S COMMENTS 5. PACKET REVIEW PUBLIC HEARING Ordinance No. FY2018-32 Rezoning Emerald Isle Estates Tract From R3 -Multifamily Residential District To R1 -Single -Family Residential District (PBZ Case No. 18-002). NEW BUSINESS Visit our website at www.facebook.com/Kodiakis landborough @Kodiak6orough www.kodiakak.us 91 0 Page 1 of 29 29 CONTRACTS Update To The Building Inspection Program Memorandum Of Agreement Between The Kodiak Island Borough And The City Of Kodiak. RESOLUTIONS Resolution FY2018-17 Extending The Lease For The Providence Kodiak Island Counseling Center To Allow Adequate Time To Negotiate And Sign A New 3 -Year Lease. OTHER ITEMS Alaska Research Consortium Request for Funding. *Approving Memoranda Of Understanding For Non -Profit Funding. *Approval of the Kodiak Island Borough Assembly 2018 Meeting Schedule. Mayoral Appointments Of Assembly Member Representatives To Different Boards, Committees, Commissions, And Councils; and Assembly Representatives To The Different Cities, Communities, and Villages. 6. ASSEMBLY MEMBERS COMMENTS 7. MAYOR'S COMMENTS 8. Supplemental a Supplemental Visit our website at www.facebook.com/Kodiakislandborough© @KodiakBorough www.kodiakak.us 91 Page 2 of 29 AGENDA ITEM #2. a. KODIAK ISLAND BOROUGH STAFF REPORT NOVEMBER 30, 2017 ASSEMBLY WORK SESSION SUBJECT: Manager's Consolidation Report ORIGINATOR: Michael Powers RECOMMENDATION: Review this report and provide direction on how to proceed. DISCUSSION: Background The voters approved an advisory ballot measure for the Borough to consider consolidation with the City of Kodiak In October 2016. The ballot measure expressly addresses the consolidation of the Borough and the City of Kodiak. It does NOT address the other incorporated (2nd class) cities within the Borough. Some people have stated otherwise, but the language of the measure, and the definitions in state law, do not result in it being applicable to the other cities (they are not "subject cities" or "offshoots" of the borough). The Assembly subsequently discussed, but not defined, what the measure meant. This measure follows a previous effort In the last 1980stearly 1990s to study the same Issue and this report addresses similar issues (See Consolidation Report May 15, 1989 labeled "1989 Consolidation Report 2 Revised" in the CivicWeb Document Center). The previous report focused a considerable amount of effort on process and potential cost savings but lacked specificity regarding staffing, powers and service delivery. It should be noted that the Borough Mayor and Manager met with their counterparts in the City to discuss jointly addressing the outcome of the ballot measure but the City declined to work with the Borough on this matter. Recently, the City changed its position to being willing to provide information needed but did not commit to work with the Borough to analyze operational and fiscal issues. Accordingly, the efforts of the Borough to study the matter have been undertaken without cooperation of the City. It is important to recognize the difficulty this has caused as the City worked with the previous committee that prepared the report and that no such cooperation (or committee) existed for this report. It should also be noted that the City recently prepared a document regarding annexation of two areas (north and south) that provides some analysis of fiscal impacts of the annexation. Their information Is considered in this report and is attached. The Borough's purpose is to provide a variety of both urban and rural services and represent ALL of the residents of the archipelago. While it is done as a 2nd class borough with defined powers, it, and the service areas created under it, have the ability to expand those powers. The City was created to represent those residents within its corporate boundaries through a Charter City. While many of the interests of the Borough and City are similar (and are jointly promoted and supported), they are not identical. This report identifies the areas previously addressed as well as changes that have occurred in the intervening years. While it does provide for options to move forward, additional work will need to be done before entering the formal process of consolidation. Significantly, very little has changed from the previous report other than potential mortgage issues are resolved. The proposals regarding potential legal services (and dependence upon interns) will need to be re-examined. A consolidated organization may have sufficient legal work to employ an attorney rather than contract. Other concerns Kodiak Island Borough Page 3 of 29 Manager's Consolidation Report AGENDA ITEM #2.a. KODIAK ISLAND BOROUGH STAFF REPORT NOVEMBER 30, 2017 ASSEMBLY WORK SESSION 0 have been raised that were not addressed in the previous report that will need to be addressed. The Kodiak Island Borough is a 2nd class, general law, borough. It has the limited powers of a 2nd class borough although it did adopt health powers. The City of Kodiak is a charter city that provides a full range of powers. The previous report supplies an analysis of the various types of government that could be used (1st class or charter borough). While not explicitly stated, it should be noted that language in a charter that "accepts all powers not restricted" provides the most flexibility into the future should a consolidated entity wish to undertake other services. While there is a perception of significant overlap between the Kodiak Island Borough (Borough) and the City of Kodiak (City), the facts of the matter tell a different story. As shown below, there are areas and departments that overlap, but many areas where they do not overlap. In two areas (Animal Control and Building Permittinspection) the City provides the service to the Borough through agreements. The City and Borough jointly work, and fund, efforts in fisheries. Staffing Areas of Overlapping Staff Elected Officials Manager's Office (3 Borough, 3 City) Clerk's Office (Borough and City 3 each) Finance (Borough 10, City 7.25 both include IT) Engineering (Borough 10, City 2) Fire -Borough (Borough) 1 FT, 50+ volunteers, City 13.75) Parks and Rec (Borough 0, City 5.75) Human Resources (excludes payroll) (1 Borough, 1 City) Separate Community Development (6 Borough employees) Health powers (provided by contract with Providence) Solid Waste (10 Borough employees) School Building ownership and maintenance Assessor's Office (5 borough employees) Resource Management (1 borough employee) Police (42.5 city employees) Harbor & Cargo (16.4 city employees) Engineering and Facilities (schools, solid waste, borough buildings, support for Service Districts) (14 borough employees) Public Works (water, wastewater, roads) (27.5 city employees) Library (7 city employees) In regard to staffing, there are three areas that clearly would need to be addressed: First, what overlap, or duplicitous staff exist; second, what shortfalls exist; and third, what are the future needs for staffing. As noted above there are some overlaps in the Managers office, Clerks, Finance, Parks, Fire and Human Resources that MAY result in duplicitous positions, however, without the cooperation of the City, it is impossible to accurately define this. For example, both jurisdictions have clerk's offices, but in the Borough, some committees are clerked by departmental secretaries which results, functionally, In additional duties not adequately addressed by the two Clerks offices. Whether those additional responsibilities could be reduced is unclear. In Finance, the Borough processes property taxes but does not process sales tax. Both entities process accounts payable and payroll, but staff assigned to those functions undertake other duties as well. Whether any true duplication of staffing exists is Kodiak Island Borough Manager's Consolidation Report Page 4 of 29 AGENDA ITEM #2.a. :N77I_\rill MIIIIII] ii]Zi19Eel: 1 STAFF REPORT NOVEMBER 30, 2017 ASSEMBLY WORK SESSION unknown. In regard to fire services, the City employs full time employees while the fire districts in the Borough are volunteer (Bayside has one full time employee). While models exist regarding full-time and volunteer departments, that is easier to model than execute given human nature. Again, without deeper analysis by both entities, it is not possible to determine "savings". In discussions with senior management of the City and the Borough, both have noted a lack of staff in nearly all aspect of operations as a significant challenge. This problem has not been clearly identified on an organization wide basis as both entities management philosophy has been to try to accomplish the tasks at hand with the staffing available. Future needs are unknown at this moment. At this juncture, there is Insufficient Information to postulate that consolidation would provide a cost savings. It should also be noted that the Borough contracts out a significant amount of services, while, generally, the City provides more services in-house. One such example is snow plowing. The Borough relies on outside vendors while the City provides this service in house. If consolidation were to occur, these management philosophies would have to be reconciled. Law enforcement is provided by the City within the City limits. In the Borough, the State provides troopers, without charge. While Troopers are available 24 hours, they are not "on the clock" on a 24 hour basis and have to be "called our after hours. Anecdotally, the level of satisfaction with the State Troopers is low because of this and likely results in a delay in reporting crimes and may result in some crimes not being reported at all. The City Annexation Report discusses the need for additional staffing with additional costs for the annexed area, but the exact methodology and assumptions about their baseline staffing is unknown. While some have posited that service areas could be created to provide various services in a consolidated entity, having different levels of law enforcement (or other services) may be problematic in a number of areas but can be done. Both the Borough and the City have numerous committees tasked with various functions. This report has not addressed the number or function however, in the next steps to be considered, the number and function should be considered as well as the potential reductions that could occur. Form of Government The Borough is a second class, general law borough with limited powers. The City Is a charter city. The powers of the City are specifically NOT enumerated in their charter, thereby allowing them to undertake any power allowed by Alaska law (staff is unaware of any powers exercised not permitted by a first class City, this matter requires further research as part of an effort of consolidation). Based upon the past report and with review of currently applicable law, consolidation would occur as a borough with the borough becoming either a first class or charter borough. Not addressed in the previous report is how large of an elected body would exist nor whether it would be elected at large or by districts (there are federal voter rights that will need further exploration). Also not addressed is representation of the villages and 2nd Class Cities with the Borough under a consolidated Borough/City effort. Both of these issues would need to be addressed. Financial issues The City's total FY16 budget was $42,503,069. The Borough's was $46,688,788. Because of the unwillingness of the City to work on this report, staff has not undertaken any analysis of the fiscal impacts or potential taxation issues but does note that different mill rates for property tax continue to exist as well as the City continues to have a sales tax. Further, the Borough continues to use service districts that assess additional mill rates to fund their operations. Overarching all of this are mill rates to support the school district (operational and debt service) which far exceed any of the City and Borough mill rates for operations. The existing service districts provide fire, lighting, roads and tide gate operations and each has a separate taxation rate. There are potentially a number of ways to handle these in a consolidated entity from dissolution to ongoing existence. Should consolidation occur, planning for these services needs to be considered. It should be noted from the 1989 report that the estimated savings for areas of duplication was approximately 11 % although the methodology for those Kodiak Island Borough Page 5 of 29 Manager's Consolidation Report AGENDA ITEM #2.a. KODIAK ISLAND BOROUGH STAFF REPORT NOVEMBER 30, 2017 z ASSEMBLY WORK SESSION savings is unclear. Both the Borough and the City face large, mostly unfunded challenges in their capital programs. In addition to the school facilities, the Borough Administrative building, the Annex, facilities leased for mental health and the long term care center either don't have a Renewal & Replacement plan, are underfunded, or both. The City faces similar challenges in its Fire Department, Harbor, Water and Wastewater operations. These unfunded capital costs are measured in the tens of millions of dollars. Service Delivery The Borough (including service areas) and City currently operate with some fundamental differences in how services are delivered. For the most part, the City provides its public work services in house, especially road maintenance. The Borough, through its' service districts, provides road services through outside contractors. The City envisions, if annexation occurs, directly providing services to the annexed area. As noted above, these philosophies would need to be reconciled. Other issues In the previous report, concerns existed due to the finance rules in place for "rural" mortgages. Subsequent to that report, the rules and definitions have changed and, at this time, a consolidation does not appear to pose any significant risk to the ability to borrow funds for mortgages. We have queried state and federal funders regarding the potential impacts. We do not believe there would be an Impact on PILT or "Revenue Sharing". Issues requiring further work Further analysis of the benefits of a charter borough as opposed to a 1st class borough needs to be explored. While it does not appear at this time that there are "unique" powers in Kodiak outside of the 1st class borough, the matter requires further attention. Unionization of City Workforce -with the recent vote and court decisions, the unionization of the City workforce is an unknown factor. Further, since the Borough workforce is unionized, It is likely they will push for unionization. It is difficult to know the true fiscal impacts; however, it Is reasonable to assume a significant cost increase for labor. While votes were recently taken that did not result in the creation of bargaining units, that could change after 1 year. Status of villages -presumably, the villages that have incorporated cities (Akhiok, Larsen Bay, Old Harbor, Ouzinkie and Port Lions) are unlikely to be part of a consolidated Borough, however this will need to be further developed and provisions made for their ongoing operation. Representative Government -How many seats and whether they are elected at large or by districts will need to be determined. Law Enforcement -As noted above, the borough Is served by State Troopers. It is unclear, based upon discussions with state officials, whether Troopers would still be assigned If the Borough undertook police (law enforcement) powers. Should the Troopers be removed, not only would additional costs be necessary to serve the consolidated entity, but how the villages would be served would need to be addressed. While it has been suggested that areas could "pay for services", how this would be done and how it would be justified in terms of providing equal services for equal taxes would have to be addressed. Further, there are requirements regarding crime reporting that would have to be considered. Kodiak Island Borough Manager's Consolidation Report Page 6 of 29 AGENDA ITEM #2.a. :H]�I_1:�6911a1.U7 �iltilgej; STAFF REPORT NOVEMBER 30, 2017 �. ASSEMBLY WORK SESSION S:. Staffing -Given human nature, staff acceptance will be critical to implementing consolidation. One of the operating principles that may soften any potential staff resistance would be to assume that any reductions in staff would be through attrition, not layoffs. Lastly, given the reluctance of some Assembly members and City Council members to even share a state lobbyist highlights the underlying issue that the Borough and City do have different perceived interests. How those are reconciled needs to be considered. Future steps 1. Continue to work with the City an previously approved cooperative efforts and look for opportunities to expand those efforts. As further joint efforts occur, and a solid working relationship is established at the elected and staff levels, and recognized by the public, unification efforts will face less hurdles. 2. If the Assembly wishes to more forcefully pursue further action regarding consolidation: a. Formally request that the city participate in a deeper analysis of the issue. In short, they will have to move beyond providing Information and actively work with the Borough on consolidation. b. Fund a consultant to collect, analyze and prepare a pre -consolidation report that will address all the formal requirements (including preparing necessary reports and documents) to move into the formal process. C. Move into the formal process by submitting a petition pursuant to state law. ALTERNATIVES: See options in body of report. FISCAL IMPACT: Unknown at this time OTHER INFORMATION: See related documents in the Document Center under Other Topics of Interest, Consolidation Related Information ( https://kodiakak.civicweb.net/filepro/documents/45969?preview=38452 ) Kodiak Island Borough Manager's Consolidation Report Page 7 of 29 Borough — City Organizational Chart Comparison As of FY18 Clerk's Office City — 3 employees Clerk Deputy Clerk Admin Asst Boro — 3 employees Clerk Deputy Clerk Assistant Clerk Finance City — 7.25 employees Director Senior Fiscal Analyst Fiscal Analyst 2 Fiscal Specialists 21nfo Systems Admin Boro —10 employees Director 2 Fiscal Analysts 2 Fiscal Technicians Fiscal Assistant Admin Support IT Supervisor Programmer/Analyst Network Technician Mayor Council City & Boro Manager's Office City — 4 employees Manager Deputy Manager HR Manager Admin Asst Boro — 5 employees Manager HR Special Projects Resource Manager Admin Asst Engineering City — 2 employees Engineer Admin Asst Boro — 30 employees Director Maintenance Coordinator Maintenance Engineer Maintenance Mechanic Project Inspector Project Manager Project Assistant 3 Admin Support AGENDA ITEM #2.a. Attorney by contract City & Boro Fire City -13.75 employees Fire Chief Deputy Fire Chief Fire Captain 8 firefighter/EMT Assistant (pt) Boro —1 employee Fire Chief Community Development Solid Waste Assessor's Office Baro Boro Boro 6 employees 10 employees 5 employees Page 8 of 29 Manager's Consolidation Report Police Parks & Rec Harhor $Cargo Public Works Library City City City City City 42.5 employees 5.75 employees 16.4 employees 27.5 employees 7 employees Page 8 of 29 Manager's Consolidation Report AGENDA ITEM #2. b. SUBJECT: Resolution No. FY2018-18 Declaring Lots 11-14 Block 4 And Tract R-2, Killarney Hills Subdivision, Surplus To Public Need, Approving Disposal Of These Properties Upon Adoption Of A Master Plan And Authorizing Staff To Undertake The Preparation Of A Master Plan. ORIGINATOR: Maggie Slife RECOMMENDATION: Move to adopt Resolution No. FY201B-18. DISCUSSION: The Kodiak Island Borough purchased Killarney Hills Tract R-1 from the Catholic Archdiocese of Alaska in 1986 for the fair market value price of $510,250.00. The intent with purchasing the land was for use as either a hospital site, middle school site, or residential development if either of the other two uses were to fall through. Improvements to the land included fill and leveling. After deciding not to construct a hospital or middle site at Tract R-1, the parcel lay vacant but zoned R2. The zoning designation reflects the 1983 opinion of the consulting real estate appraiser that if a hospital or school were not to constructed, the area would be best suited for residential development. In 1998, prior to the construction of the Dark Lake Field, the City of Kodiak erected two backstops and sets of baseball bases for the Kodiak Little League Machine pitch league. In 200012001 with the formation of the Kodiak Football League, the City of Kodiak Parks and Rec placed additional fill between the two baseball diamonds and connected the outfield areas to form a large grassy field. When Baranof Park went under construction in 2012 to replace the track and install astro-turf on the infield, the Killarney Hills Field was designated the temporary home for sports requiring intensive field use. The Kodiak Island Borough financially partnered with the City of Kodiak funded an effort to crown the Killarney Hills Field to improve field drainage and allow uncontrolled runoff from the field. Baranof Field was completed and opened In 2014. Since then, the Killarney Hills Field has continued to be used by the Kodiak High School sports teams as well as numerous City of Kodiak Parks and Rec groups, with user -ship dominated seasonally by Kodiak Football League and Kodiak High School sports. The piecemeal development of Killarney Hills Field was never subjected to public interest findings, environmental and regulatory permitting, public process and commentary, master -planning, economic studies, city-wide Parks and Recreation development plans, or any of the standard processes we subject borough citizens or private development/construction projects to. The field currently exists illegally without a valid zoning compliance permit for the facility. Original plans for the parcel Involved direct access off of Rezanof Drive. This access has never been constructed, nor have any parking areas, controlled traffic accesses, pedestrian routes, or traffic safety measures Implemented on the property. The field was not engineered or installed with an engineered drainage plan,nor have there been engineering or safety studies related to field appurtenances. A US Army Corps of Engineers Nationwide Permit was issued to Kodiak Island Borough on 14 May 1987 allowing placement of fill within 2 acres of the —17 acre tract pursuant to the construction of a hospital. Since no hospital was ever constructed, and no other USACOE permit has been issued, the development and construction of the Woody Way ball field was illegal under KIB Code, as well as a Federal Wetlands Protection standpoint. Future development of Killarney Hills should comply with all state, municipal, and federal regulations. Killarney Hills has undergone wetlands mapping, and the current field location is atop designated wetlands. Engineering design concerns related to the parcel in 1986 recommended engineered drainage design for any development on the property. Kodiak Island Borough Page 9 of 29 Killarney Hills - Review Proposed Planning Process KODIAK ISLAND BOROUGH STAFF REPORT DECEMBER 21, 2017 ,;.. ASSEMBLY REGULAR MEETING SUBJECT: Resolution No. FY2018-18 Declaring Lots 11-14 Block 4 And Tract R-2, Killarney Hills Subdivision, Surplus To Public Need, Approving Disposal Of These Properties Upon Adoption Of A Master Plan And Authorizing Staff To Undertake The Preparation Of A Master Plan. ORIGINATOR: Maggie Slife RECOMMENDATION: Move to adopt Resolution No. FY201B-18. DISCUSSION: The Kodiak Island Borough purchased Killarney Hills Tract R-1 from the Catholic Archdiocese of Alaska in 1986 for the fair market value price of $510,250.00. The intent with purchasing the land was for use as either a hospital site, middle school site, or residential development if either of the other two uses were to fall through. Improvements to the land included fill and leveling. After deciding not to construct a hospital or middle site at Tract R-1, the parcel lay vacant but zoned R2. The zoning designation reflects the 1983 opinion of the consulting real estate appraiser that if a hospital or school were not to constructed, the area would be best suited for residential development. In 1998, prior to the construction of the Dark Lake Field, the City of Kodiak erected two backstops and sets of baseball bases for the Kodiak Little League Machine pitch league. In 200012001 with the formation of the Kodiak Football League, the City of Kodiak Parks and Rec placed additional fill between the two baseball diamonds and connected the outfield areas to form a large grassy field. When Baranof Park went under construction in 2012 to replace the track and install astro-turf on the infield, the Killarney Hills Field was designated the temporary home for sports requiring intensive field use. The Kodiak Island Borough financially partnered with the City of Kodiak funded an effort to crown the Killarney Hills Field to improve field drainage and allow uncontrolled runoff from the field. Baranof Field was completed and opened In 2014. Since then, the Killarney Hills Field has continued to be used by the Kodiak High School sports teams as well as numerous City of Kodiak Parks and Rec groups, with user -ship dominated seasonally by Kodiak Football League and Kodiak High School sports. The piecemeal development of Killarney Hills Field was never subjected to public interest findings, environmental and regulatory permitting, public process and commentary, master -planning, economic studies, city-wide Parks and Recreation development plans, or any of the standard processes we subject borough citizens or private development/construction projects to. The field currently exists illegally without a valid zoning compliance permit for the facility. Original plans for the parcel Involved direct access off of Rezanof Drive. This access has never been constructed, nor have any parking areas, controlled traffic accesses, pedestrian routes, or traffic safety measures Implemented on the property. The field was not engineered or installed with an engineered drainage plan,nor have there been engineering or safety studies related to field appurtenances. A US Army Corps of Engineers Nationwide Permit was issued to Kodiak Island Borough on 14 May 1987 allowing placement of fill within 2 acres of the —17 acre tract pursuant to the construction of a hospital. Since no hospital was ever constructed, and no other USACOE permit has been issued, the development and construction of the Woody Way ball field was illegal under KIB Code, as well as a Federal Wetlands Protection standpoint. Future development of Killarney Hills should comply with all state, municipal, and federal regulations. Killarney Hills has undergone wetlands mapping, and the current field location is atop designated wetlands. Engineering design concerns related to the parcel in 1986 recommended engineered drainage design for any development on the property. Kodiak Island Borough Page 9 of 29 Killarney Hills - Review Proposed Planning Process AGENDA ITEM #2.b. KODIAK ISLAND BOROUGH STAFF REPORT G. DECEMBER 21, 2017 �p�, ASSEMBLY REGULAR MEETING At the request of the Kodiak Island Borough Assembly, Staff is bringing forth this resolution to enter the master planning process for this land. The Resource Management Office, In cooperation with the Community Development Department proposes to put the Killarney Hills property through the master planning process. In order to demonstrate a sincere intention to develop this property to potential developers it is also necessary to find this R-2 zoned land surplus to the public need. The master planning process will allow a transparent and equal opportunity for community members, groups, and government agencies to examine and quantify the maximum utility of the Killarney Hills Tracts. Further, it will allow KIB to determine the necessary permitting requirements for any future modification to the property. We will look at the Comprehensive Plan, zoning, code compliance, wetlands constraints, utility availability and capacity, access points, traffic, transportation, park use, greater -scale lands availability Borough -wide, future KIB needs, and value of improved lots. The goal is to determine which combination of land use would provide maximum social and economic benefit to the community. The proposed master planning scope, schedule, and fee estimate are attached. The master planning process will take place on an accelerated schedule over the course of one year. The Community Development Department will be responsible for the development of a master plan, and pending adoption of the master plan will work with the Resource Management Office to let an RFP for a developer to create a development plan for the parcel based on the findings of the master plan. Details can be found in the attached project scope, project schedule, project budget, and project public involvement plan. ALTERNATIVES: Take no action. FISCAL IMPACT: Staff time for master planning process: $57,540.00 Materials: $5470 Project Budget attached. OTHER INFORMATION: Kodiak Island Borough Killarney Hills - Review Proposed Planning Process Page 10 of 29 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24 25 26 27 28 29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46 47 48 49 AGENDA ITEM #2.b. Introduced by: Resource Management Requested by: Borough Assembly Drafted by: Resource Management Introduced on: 12/21/2017 Adopted on: KODIAK ISLAND BOROUGH RESOLUTION NO. FY2018-18 A RESOLUTION OF THE ASSEMBLY OF THE KODIAK ISLAND BOROUGH DECLARING LOTS 11-14, BLOCK 4 AND TRACT R-2, KILLARNEY HILLS SUBDIVISION SURPLUS TO PUBLIC NEED AND APPROVING DISPOSAL OF THESE PROPERTIES BY CONTRACTED SALE UPON ADOPTION OF A MASTER PLAN. WHEREAS, The Kodiak Island Borough Resource Management Department has requested disposal of Lots 11-14, Block 4 and Tract R-2, Killarney Hills Subdivision; and WHEREAS, Kodiak Island Borough Code (KIBC) 18.20.030 requires each proposed disposal of Borough land be reviewed by the Planning & Zoning Commission before submission to the Assembly; and WHEREAS, the Planning & Zoning Commission approved a master planning process to be undertaken for Lots 11-14, Block 4 and Tract R-2, Killarney Hills Subdivision at their May 18, 2016 regular meeting; and WHEREAS, the purpose of the master planning process is to develop a community plan for the permanent development of these lots; and WHEREAS, the master planning process allows the community to plan for the future use of this land and may Include recreational, residential, and commercial uses; and WHEREAS, KIBC 18.20.120 (d) allows the Assembly to vote to dispose of land by contracted sale, for specified development with restrictions on development type, resale values, and proportions of mixed-use facilities consistent with the parameters to be outlined in the master planning process; and WHEREAS, on August 16, 2017, the Planning & Zoning Commission voted to recommend to the Borough Assembly adoption of Resolution No. FY2018-10, retaining Lots 11-14, Block 4 and Tract R-2, Killarney Hills Subdivision and declaring the parcel not surplus to the public need until adoption of a master plan; and WHEREAS, on October 5, 2017 the Kodiak Island Borough Assembly failed Resolution No. FY2018-10 and directed staff to draft a resolution declaring the parcels surplus, approving disposal, and directing Borough staff to restart the master planning process for the named parcels. NOW, THEREFORE, BE IT RESOLVED BY THE ASSEMBLY OF THE KODIAK ISLAND BOROUGH that Kodiak Island Borough, Alaska Resolution No. FY2018-18 Page 1 of 2 Page 11 of 29 Killarney Hills - Review Proposed Planning Process 50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75 76 77 AGENDA ITEM #2.b. Section 1: The Kodiak Island Borough Assembly, In accordance with Title 18 of the Kodiak Island Borough Code, approves disposal of Lots 11-14, Block 4 and Tract R-2, Killarney Hills Subdivision. Section 2: The Kodiak Island Borough Assembly has determined, after a public hearing on November 16, 2017, that the aforementioned property is hereby surplus to the public's need. Section 3: The Kodiak Island Borough Assembly hereby directs Borough staff to restart a master planning process for Lots 11-14, Block 4 and Tract R-2, Killarney Hills Subdivision. Section 4: The aforementioned property should be disposed of by fair market value via direct sale pending adoption of a master plan for the property in accordance with KIBC 18.20.120(d). ADOPTED BY THE ASSEMBLY OF THE KODIAK ISLAND BOROUGH THIS DAY OF KODIAK ISLAND BOROUGH Daniel A. Rohrer, Mayor VOTES: Ayes: Noes: Kodiak Island Borough, Alaska 2017. ATTEST: Nova M. Javier, MMC, Clerk Resolution No. FY2018-18 Page 2 of 2 Page 12 of 29 Killarney Hills - Review Proposed Planning Process Memorandum AGENDA ITEM #2.b. Kodiak Island Borough Community Development Department 710 Mill Bay Road Kodiak, Alaska 99615 Phone(907)486-9363 Fax(907)486-9396 www.kodiakak.us Date: October 30, 2017 To: Borough Assembly From: Community Development Department RE: Killarney Hills Master Planning Process Revised Detailed Scope The following is the current scope of work for the master planning process for Lots 11-14, Block 4 and Tract R2, Killarney Hills Subdivision (Killarney Hills), as modified from its original version dated May 2016. Task 1—Data Collection and Analysis 1.1 Data Collection The purpose of the data collection task is to gather all existing data on factors that could play a significant role in determining how Killarney Hills may be developed in the future. This data will serve as a baseline and will be used to inform the analysis in Task 1.2. Comprehensive Plan The goals, objectives, and future land use designation identified in the Comprehensive Plan will serve as a foundation for this planning effort. Zoning Current zoning of the subject parcels, as well as other parcels in the vicinity will be identified and documented. Code compliance Current code compliance will be determined and both existing and future zoning options will be identified (e.g., R3, RSL, ADU). Wetland constraints Wetlands exist on the property and must be taken into consideration when development plans are made. DOWL's wetland delineation will be reviewed. Utilities—availability and capacity Water and sewer will be contributing factors in determining developability of Killarney Hills. It will directly impact the intensity with which the land can be used. A general cost of Page 13 of 29 Killarney Hills - Review Proposed Planning Process AGENDA ITEM #2.b. installing utilities in preparation for lands sales will be calculated for the 4, 6, and 9 lot scenarios that have been proposed. Access points Existing access points, permitted or otherwise, need to be documented for use In a high- level traffic analysis under Task 1.2. Location of access points will play a role in the configuration of lots within the unsubdivided tract and will need to be coordinated with Alaska DOTBPF and the City of Kodiak. Traffic/transportation Existing traffic information for the area will be compiled for consideration in Task 1.2. Existing and future traffic patterns and impacts will be analyzed at a very high level. Park use and information (KIB and City) This Information will be collected to determine demand for sports fields an Tract R2, as well as other fields in the community. Land availability elsewhere for residential use (Borough Lands Committee) The Borough Lands Committee and Borough Resource Management Officer are examining this question. Future KIB needs The needs of the borough will be multi -pronged and will take into account issues such as housing, school construction, other municipal buildings, land sale revenue, etc. Value of improved lots The estimated value of the 4 existing platted lots on Woody Way Loop (north of Tract R2) will be reviewed, as will the estimated values of the 6 and 9 lot options considered in 2014. These values will be considered when analyzing return on investment. 1.2 Analysis This task will provide general analysis of information collected in Task 1.1. Comprehensive Plan analysis An analysis of the goals, objectives, and future land use designation as they pertain to the development of this (or alternative) site(s) will be completed. This general analysis will inform the policy discussions for individual scenarios developed in Task 3.1. Land use needs Based on the Comprehensive Plan analysis and current trends, assumptions will be developed about the future land use needs of the community. Identified land use needs will be a consideration in the development of scenarios in Task 3.1. Utility costs (vs. development at other locations) The cost of installing utilities on this site will be a significant portion of the cost to develop some or all of Killarney Hills. Order of magnitude estimates may be developed for other sites in order to compare financial feasibility. Traffic analysis A 20 -year traffic analysis will be conducted to determine the impacts of low and high density development of the site on the surrounding road network. Page 14 of 29 Killarney Hills - Review Proposed Planning Process AGENDA ITEM #2.b. Alternative location(s) for ball fields Other locations in public ownership that may be used for the development of community ball fields will be identified. They will then be analyzed in terms of factors such as access and adjacent land use compatibility. Cost estimates for moving the ball fields may also be considered. Development ROI An analysis will be completed to determine anticipated return on investment (ROI) associated with existing proposals (4, 6, and 9 lot subdivision). The Information analyzed here can serve as a baseline when completing scenario -specific analyses in Task 3.1. Task 2—Stakeholder Engagement 2.1 Agency Collaboration Several agencies have a vested interest in Killarney Hills. For this reason, it is imperative to engage in early and ongoing dialogue about community needs, desires, and expectations. Project updates can be provided to Individual committees on an as -needed basis. Additionally, a series of agency coordination meetings should occur at key project milestones. Meetings could include: • KIB Parks & Recreation Committee • City Parks & Recreation Advisory Board • City Parks & Recreation Department • Borough Lands Committee • KIBSD • KIB Engineering & Facilities • City Public Works • City Council • Assembly 2.2 Public Coordination/Meetings This property is currently being used by the public and is owned by a public entity. It is important that the public be given multiple opportunities to provide input, voice their concerns, and engage in meaningful conversation with the project team. A minimum of 3-4 public meetings are recommended throughout the life of the project. 2.3 Public Hearings In addition to public meetings, public hearings will also be held with the following: • Planning & Zoning Commission • Borough Assembly Page 15 of 29 Killarney Hills - Review Proposed Planning Process AGENDA ITEM #2. b. Task 3—Scenarlo Development and Selection 3.1 For Each Scenario: It is recommended that graphical depictions, fact sheets, and a brief be developed for each scenario considered. Graphical depiction Concept drawings will be completed for each alternative/scenario developed. Fact sheet Easy -to -ready and easy -to -compare fact sheets will be developed for each alternative/scenario developed and will contain information such as number of residential lots, density ranges, estimated potential ROI, and trip generation estimates. Brief on scenario -specific analysis In addition to the fact sheet, each scenario will have a more detailed brief, outlining the policy and financial implications associated with it. Selection of a given scenario could have a range of impacts, including changes to the comprehensive plan, environmental mitigation, or high upfront development costs, for example. 3.2 Overall Comparison Chart A comparison chart outlining the similarities and differences between the developed scenarios will be created. This will serve as a tool in discussions among stakeholder groups and will ultimately aid in the selection of a scenario, or set of scenarios. 3.3 Selection of Scenario Selection of the scenario, or set of scenarios, will involve discussion with all interested stakeholder groups. The selection methodology will be developed based on stakeholder input received throughout project development. Task 4—Implementation Plan Solid Implantation plans are an Integral part of successful planning efforts. A tentative timeline for plan implementation will be developed, along with a funding strategy. When developing a funding strategy, several options will be explored, including opportunities for local government and non-profit agencies to work together in providing resources and seeking outside resources such as federal grants and state general funds. 4.1 Short-, mid-, and long-term development timeline 4.2 Short-, mid-, and long-term funding strategy 4.3 Opportunities for local coordination 4.4 Opportunities for outside funding Page 16 of 29 Killarney Hills - Review Proposed Planning Process AGENDA ITEM #2.b. Task 5—Final Master Plan 5.1 Draft Plan Once a scenario, or set of scenarios, has been selected, plan elements completed throughout the project development process will be compiled into a single, comprehensive document for agency and public review. 5.2 Public Comment/Meeting(s) When the plan has been drafted it will be presented to stakeholders and will be made available for public comment for a period of 30 days. At the close of the public comment period, the project team will consider all comments and make changes to the draft plan as appropriate. Once this is done, the plan will be submitted to P&Z for review and recommendation to the Assembly. 5.3 P&Z Hearing(s) and Recommendation After public hearings and deliberation, P&Z will forward the plan to the Assembly with their recommendation. 5.4 Assembly Final Legislative Action After public hearings and deliberation, the Assembly will take final legislative action. Task 6—Follow-up Activities 6.1 Comprehensive Plan Amendment(s) Completion of this planning effort may require amendments to the 2008 Comprehensive Plan. The master plan itself for Killarney Hills may be adopted as an element of the 2008 Comprehensive Plan. The Future Land Use Designation of the property, or other properties included in this master plan, may need to be changed. 6.2 Rezoning Rezoning of Killarney Hills or other properties included in this plan may also be necessary once the planning effort is complete. 6.3 Land Disposal Process Once a plan has been approved, KIB will need to engage in the land disposal process as part of the implementation plan. Page 17 of 29 Killarney Hills - Review Proposed Planning Process AGENDA ITEM #2.b. Items Notes Advertising4 public meetings advertised' de each $135Poa 3.5^ +$400 Facebock Mallin 150-200 on mailinglist, 5 mailings $75 envelopes, $490 postage) Paper Products 6.5"x11"4104aam cases 20,000 sheets Paper Products ma ized Porton of 36" roll F$4$'970 Food 4 public meetings, s endln $150 on refrashmentslsu lies for each Printing Xemz 75% color $900,25%b8w $50 Printing Plotter No contract, estimated Ink expenses Misc Su Iles Pens, staples. starboard, etc. Prellmina Total Contin enc $497 10% Total Budget Adjustment 1 $5,467 Page 20 of 29 Killarney Hills - Review Proposed Planning Process Memorandum AGENDA ITEM #2.b. Kodiak Island Borough Community Development Department 710 Mill Bay Road Kodiak, Alaska 99615 Phone (907) 486-9363 Fax (907) 486-9396 www.kodiakak.us Date: October 30, 2017 To: Borough Assembly From: Community Development Department RE: Killarney Hills Master Planning Process Revised Public Involvement Plan The following is the proposed Public Involvement Plan (PIP) of the master planning process for Lots 114, Block 4 and Tract R2, Killarney Hills Subdivision (Killarney Hills), as modified from its original version dated May 2016. This proposed PIP contains the following information: 1. General Information 2. Public Involvement Goals 3. Stakeholders 4. Methods 5. Communication General Information 1.1 Proiect Scope The goal of the Killarney Hills Master Plan is to identify a development scenario, or set of scenarios, for the site. Data will be collected and analyzed to inform the creation of several development scenarios for this Borough -owned property. Through a collaborative public process a scenario, or set of scenarios, will be selected and an implementation plan will be developed. Once a plan has been approved by the Borough Assembly, the Master Plan will guide the development of Killarney Hills for the foreseeable future. 1.2 Staff Contact Information Page 21 of 29 Killarney Hills - Review Proposed Planning Process AGENDA ITEM #2. b. Comments and questions from the public about the project can be directed to: Daniel McKenna -Foster, Associate Planner (907)486-9361 killarnevh illsla kod is kak. us 2. Public Involvement Goals • Clearly outline the project development process • Ensure that stakeholders are aware of how, when, and where they can be involved in the decision-making process • Share information in a transparent and understandable way • Include as many stakeholder groups as possible in the decision-making process • Document and respond to all comments received 3. Stakeholders Several stakeholder groups have been preliminarily identified. However, many more may be added as the project progresses. The lists below serve as a starting point and participation in the project is not limited to, nor required by, those groups identified here. 3.1 Public Members of the public at -large are encouraged to provide input throughout the planning process. 3.2 Government • KIB Parks & Recreation Committee • City Parks & Recreation Advisory Board • City Parks & Recreation Department • Borough Lands Committee • KIBSD • KIB Engineering & Facilities • City Public Works • City Council • Assembly 2 Page 22 of 29 Killarney Hills - Review Proposed Planning Process AGENDA ITEM #2.b. 3.3 Other • Kodiak Little League • Kodiak Football League • Relay for Life 4. Methods 4.1 Website A website will be created for the project and will be updated regularly to keep Interested stakeholders informed of the project's progress. The website will also make all project documents available for review and will provide contact information for project staff. 4.2 Point of Contact To ensure that all public comments are received and documented, a single point of contact will be established for the public in the Community Development Department (CDD) and a unique project email will be created (Section 1.2). 4.2.1 Media Inquiries Inquiries about the project from media sources should be directed to: Sara Mason, Community Development Director (907)486-9360 sm ason(rDkodiakak.us 4.3 Meetings and Hearings 4.3.1 Public Meetings This property is currently being used by the public and is owned by a public entity. It Is Important that the public be given multiple opportunities to provide Input, voice their concerns, and engage in meaningful conversation with the project team. Currently, 4 public meetings are scheduled to coincide with key project decision points. 3 Page 23 of 29 Killarney Hills - Review Proposed Planning Process AGENDA ITEM #2.b. 4.3.2 Public Hearings After the draft plan has been revised based on comment received during the public comment period, public hearings will be scheduled with the Planning and Zoning (P&Z) Commission. Once P&Z feels that the plan is ready, it will be forwarded to the Assembly with their recommendation. The Assembly will also hold public hearings on the plan before taking final legislative action. 4.3.3 Agency Coordination Meetings It is anticipated that there will be at least 3 interagency meetings at which local government officials and committees will have the opportunity to collaborate and discuss public input, development strategies, funding opportunities, etc. 4.4 Mailing List A mailing list will be developed and maintained by CDD for those wishing to receive project updates by mail. Several postcards will be mailed that coincide with key milestones and events, such as public meetings and release of the draft master planning document. 4.5 Listsery For interested parties preferring electronic communication, a listsery will be developed and maintained by CDD. Email correspondence will be sent at the same time as mailed updates and will contain the same information. 4.6 Documentation of Public Involvement Activities All public involvement and outreach activities will be documented as they occur. A compilation of this information will be included as a chapter of the master plan. 4.7 Comment Documentation A table will be maintained to document each public comment received and each response sent. This table will allow staff to easily categorize and summarize issues, concerns, and suggestions submitted by stakeholders and to ensure that each project participant's comments are being weighed and considered in the decision- making process. Comments will be responded to in the manner in which they were received. For example, a comment sent in the form of a letter will be responded to with a letter. Page 24 of 29 Killarney Hills - Review Proposed Planning Process AGENDA ITEM #2. b. 4.8 Other Methods Other public outreach methods may be added to this Public Involvement Plan as needed if public involvement goals are not being met. 5. Communication 5.1 Communicating with the Planning and Zoning Commission P&Z will be provided updates on the progress of the project at work sessions or regular meetings, at which time they may alter the project scope, schedule, or public involvement plan If necessary. All documents distributed to P&Z commissioners for these discussions will also be made available to the public and although these meetings will not be public hearings at which public testimony will be heard, citizens will be encouraged to observe discussions and provide written feedback to CDD staff (Section 1.2). 5.2 Communicating by E-mail and Letter All comments received and responses sent via e-mail or letters will be saved as PDFs and will be kept by CDD, distributed to P&Z, and made available on the project website for the public to view. Through the life of the project, original a -malls will also be kept in their native file format in Microsoft Outlook. 5.3 Communicating by Telephone and In -Person All telephone and in-person correspondence will be documented electronically, to the extent possible, and filed with e-mail and letter correspondence with CDD (Section 5.2). Similarly, telephone and in-person communications will be distributed to P&Z and made available to the public via the project website. 5 Page 25 of 29 Killarney Hills - Review Proposed Planning Process F U J W H Z O y D U U 0 W F D LL r r N r" N W m W O Z LL O Q AGENDA ITEM #2.c. Of z o�u c� f� 0 x� N N Q F U 3 ti rn 0 r r c hi v C a7 m V 01 0) U E a7 C C N C7 O OL C CO C a1 a) a) a) C O m N O y y F > 6 m C .N m U ° 0 C g 'in- m x Ca C -o a) a7 rn •� N O m or - .O C _ m U 7 U G O .0 ) N "O C C m LL p Q' W fD D.. N N N C y C F <� (CO d N N C'OU m? C d a) C C12 a d y� dy O V N Q CN -0 o �v�7 mN cc Emm�mcmiV.0 i=E c o ° c ° O `m o N N m L. EO U y a y Ifj °Co y C �p N vco mycE 7 c C- aci-�M°Naa)Ca x a cUimdo2C, ac) a m mu_e3 y m E d— O� X m m� ' am,�'M E~ aU� m "O a) C a m y 3 y o and p U N" �•- Ca E O o 'O p m 2 N m N N c p_ m >'7"U� U U m L C m _rnr" F- U) @— O 7 a) O an Cy d C (� a) Ca m O pCa O E a)U~= N m m 7 O N a) h mem m e m�Qr�Nfn a� m Cl) L CO m= U C m a) N L a) .D C ` a) U N ry m{ 'C L a) .0 U) C15 0 LL0m'2v �awz-iY�-F- F- - C7 CL ? > LU M W W � y O Q Q U Page 26 of 29 Future Discussion Items a r r- 04 N E a) Z, v ° O� N y CD a Md AGENDA ITEM #2.c. Page 27 of 29 Future Discussion Items 0 N N d a E d o Cy z� 0 y N > M Ma I C C ` O O O N N T I c�3c@ u Coop N 3 C) `o co w N O C t0CU O r n O 0C m O N ° N C CU C O r a0 U O � 0 N 3 E coo X o y O o t� r C N X 0 C) N O N C).0C N Lo n �N O C d M O N N y N . Coa) C a) N N. EW OL [a0 X O .- Q. C O W U H 3 M W u O N O a C C O0 CO N O N 01 a) C O 'y U "O U N N uJ N U C C L O Q w N U X N O V E N O'L = N m N m C O V O W C N N C m �0 aEiv°o omE L°E N E y C O C° M, a o oc 0 3°)°y� E d ow N E 0 N ZL) No ° N T C M o U C O C O N w N C in o N C 01 U O_ 2 N d a) a) L) - , C N O 7 CD a a0NE °'�o°��mm�°° �a)Na) N O> O E N 7 C= w C L N a) a) a) U J N O` — U) C a'm U p 'C '00 C O U O_L„ �L-. N C C C c`0 O) +d, ` m U N a CM N C E o O) N m O C c � E '0 0).0 c=o N N V m C CO d o N O U O G C C C O U Q) O) � .@ O w y N U C U a) E 'O O O) („) FU a) E ° c o. Co m' o ON O O' E > O 0) a P oi— o� N a) N= 'O U a) O. N 0. •. _ _ C U I -Q N><u)< E>U NQ o TL. a C N •.. O 'C y m m j= C (� c -5-m- o ul C >, y a CM m -0 QCL o m m Ca3ti c • • • • • • • • • C L • U'p C no 'O C N 'O `O 'O > >rgUKcpUUroZOmmQ rn L H U W a Y a F Z Z U W U Page 27 of 29 Future Discussion Items 0 N N d a E d o Cy z� 0 y N > M Ma AGENDA ITEM #2.c. Page 28 of 29 Future Discussion Items a HI N N a E m o z0 .0 0 m � N y N l0 of EL Co Co � N o 0 O 3 U) N Co N X W X W O N C O O` N O C d a p O CC N O CL rn w v ? o .O m c m o O 0 N = E' N —_ N N T C d NC D) N _ O (D N w N m r- C E N o. isCO m 3 O CU 06 C o V O I N O 2of v m U N N N CM 01 C U U y ocoo�o•� C UC C —a° I DE 0¢ O or. C -Y MC d CU d c N C O (� O_ C O y r C 0 Y O EL 'C (0 L L CY m U U O N T N •M Qu- y N C>> >ma. mUNmmS N o C> L U) ID W U Z Q � z 2 LL Page 28 of 29 Future Discussion Items a HI N N a E m o z0 .0 0 m � N y N l0 of EL AGENDA ITEM #8.a. KODIAK ISLAND BOROUGH WORK SESSION Work Session of: Please PRINT your name Please PRINT your name --?A%-/, s 14 Page 29 of 29