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HomeMy WebLinkAbout2017-11-21 City Council Work SessionAgenda City Council Work Se ssion City of Edina, Minnesota Edina City Hall Community R oom Tuesday, November 21, 2017 5:30 PM I.Call To Order II.Roll Call III.Draft 2018 Comprehensiv e W ater Resources Ma nagement Plan Presentation for Review and Comment IV.Adjournment The City of Edina wants all res idents to be c om fortabl e bei ng part of the publi c proc ess . If you need as s is tanc e i n the way of heari ng am pli )c ation, an interpreter, large-print doc um ents or s om ethi ng els e, pleas e c al l 952-927-8861 72 ho urs in advance of the m eeting. Date: Novemb er 21, 2017 Agenda Item #: I I I . To:Mayor and C ity C ounc il Item Type: O ther F rom:Jes s ic a V. Wils o n, Water R es o urc es C o o rd inato r Item Activity: Subject:Draft 2018 C o mp rehens ive Water R es o urc es Management P lan P resentatio n for R eview and C omment Disc ussio n C ITY O F E D IN A 4801 West 50th Street Edina, MN 55424 www.edinamn.gov A C TI O N R EQ U ES TED : P rovide direction on multiple key questions related to the update of the C omprehensive Water R esources M anagement P lan. I N TR O D U C TI O N : S ee attached staff report and presentation materials. AT TAC HME N T S : Description Staff report_Draft CWRMP_20171121 Draft CWRMP Executive Summary Pres entation slides _Draft CWRMP_20171121 Pres entation Final 2017-11-21 November 21, 2017 Mayor and City Council Jessica V. Wilson, Water Resources Coordinator Draft 2018 Comprehensive Water Resources Management Plan Presentation for Review and Comment Information / Background: Staff is seeking review and comment of the draft 2018 Comprehensive Water Resources Management Plan. A copy of the draft plan is available on the City’s website at www.EdinaMN.gov/WaterResources. A presentation will describe the background information, key elements, policy gaps, and issues for which staff are seeking direction. The Energy and Environment Commission, Planning Commission, neighboring cities, watershed districts, and the public have been invited to provide comments for consideration through November 27th. An update to the City’s 10-year local water plan, called the Comprehensive Water Resources Management Plan, is a required component of the city-wide local comprehensive plan. Adoption of the local water plan is required within two years of local comprehensive plan adoption which must be completed before December 31, 2018. Although the local water plan is mandated by state statute, staff has elected to go beyond the minimum requirements to draft a plan that creates a space for meaningful change with regard to water resources management in Edina. The Comprehensive Water Resources Management Plan defines policies, identifies and prioritizes issue areas, and plans implementation activities around the services of flood protection, stormwater runoff management, and clean surface water for the next ten years. A copy of the draft Executive Summary is attached. City of Edina 2017 Comprehensive Water Resource Management Plan 1-1 1.0 Executive Summary This plan provides the City of Edina with a Comprehensive Water Resource Management Plan (CWRMP). The plan was developed to address current and future stormwater issues, especially those related to future development and redevelopment. The plan addresses stormwater runoff management and flood control, water quality management, and wetlands protection through establishment of stormwater planning policies and recommendations. The City of Edina developed its first CWRMP in 2003. The original CWRMP is referenced throughout this document as the 2003 CWRMP. The CWRMP was then updated in 2011. This CWRMP is composed of Section 1.0: Executive Summary and 16 additional sections, which are described as follows: Section 2.0: Introduction and Physical Setting—presents background information regarding the City, general watershed information, and plan purposes. Section 3.0: Policies for Water Resources Management presents background information, goals, policies and design standards covering runoff management and flood control, water quality management, erosion and sediment control, wetlands, floodplain management, recreation, habitat and shoreland management, groundwater, the City’s education goals, and National Pollutant Discharge Elimination System (NPDES) considerations. Section 4.0: Methodology for Modeling—describes the data, methods and assumptions used for the stormwater analyses. Section 5.0 through Section 14.0: (Major Drainage Area Descriptions and Recommendations)—describes the general drainage area, drainage patterns within the area, the stormwater system analysis and results, and implementation recommendations for each of the following 10 major drainage areas in the City: Nine Mile Creek- North, Nine Mile Creek- Central, Nine Mile Creek- South, Lake Cornelia/Lake Edina/Adam’s Hill, Nine Mile South Fork, Southwest Ponds, Trunk Highway (TH) 169 North, Northeast Minnehaha, Southeast Minnehaha, and Northwest Minnehaha. Section 15.0: Issues and Implementation Program—describes the significant components of the City’s CWRMP implementation program, including its NPDES Phase II Municipal Separate Storm Sewer (MS4) permit, specific requirements of the NMCWD and MCWD, financial considerations, ordinance implementation and official controls, and implementation priorities. Section 16.0: Wetlands—Discusses the wetland inventories completed for the City of Edina and the assessment methodologies and results. Section 17.0: References City of Edina 2017 Comprehensive Water Resource Management Plan 1-2 1.1 Problems, Issues, and Potential Solutions This section summarizes the City’s 2018 - 2027 water resources implementation program, and potential stormwater management improvements identified in Section 5.0 through Section 14.0 of the plan. 1.1.1 Water Resources Implementation Program This plan serves as a master plan for the City’s water resources management and storm drainage system. The City will work with residents to implement structural (capital) improvements and non-structural programs to address existing water resource problems within the City and to prevent future problems from occurring. The implementation program identifies and prioritizes the programs and improvements, and provides cost estimates for budgeting purposes. Table 15.1 presents the City’s water resource-related implementation program, which includes the City’s non-structural (administration) programs and structural (capital) improvement program. 1.1.2 Runoff Management and Flood Control The hydrologic and hydraulic modeling analyses of the current stormwater system identified several areas throughout the City where the desired 1-percent-annual chance level of protection may not be provided. These problem areas and potential solutions are discussed in detail in Section 5.0 through Section 14.0 and are summarized and prioritized in Table 15.2. In addition to evaluating the level of protection provided by the current stormwater system, the level of service provided was also evaluated. From this analysis, it was determined that the storm sewer throughout many areas of the City is not currently providing the desired 10-year level of service. The areas where the storm sewer does not offer sufficient capacity and street flow occurs during a 10-percent-annual-chance event are depicted in figures in Section 5.0 through Section 14.0 .The capacity of these storm sewer systems should be evaluated and upgraded as opportunities arise. 1.2 Flood Risk Reduction Strategy As part of this 10-year plan, the City of Edina will develop a Flood Risk Reduction Strategy that outlines a plan for working toward reducing flood risk, where appropriate, and meeting its stormwater management goals for providing a 1-percent-annual-chance (100-year) level of protection where possible. The strategy will identify and characterize flood problems throughout the city and identify strategies and infrastructure improvements to address flood-prone areas. The strategy will include preparation of planning-level cost estimates to help understand the potential financial investment required to meet the City’s flood protection goals and the anticipated timeframe for implementation. The Flood Risk Reduction Strategy will detail the City’s approach to addressing flood-prone areas based on implementation categories described in Section 15.1.3.1. he Flood Risk Reduction Strategy will focus on identification and prioritization of flood reduction efforts. The City will seek to maximize cost effectiveness and capitalize on coinciding opportunities, such as planned street reconstruction, redevelopment, availability of land, and other planned infrastructure City of Edina 2017 Comprehensive Water Resource Management Plan 1-3 improvement projects. Consideration will also be given to achieving additional “co-benefits”, such as water quality improvements, open space expansion, and wildlife habitat improvement. The City recognizes that addressing regional and local flood issues throughout the community will require multiple strategies and many actions implemented over a generational time frame. The City will employ the strategies and associated actions summarized in Table 1.1 for addressing flood issues. Table 1.1 Strategies and Potential Actions for Addressing Local and Regional Flood Issues Strategies Potential Actions Modify the flood Plan, preserve and reclaim flood storage (new public and private stormwater plans, deeds, easements, open space) Maintain and increase green space Maintain and increase storage (ponds, underground chambers, streets, depressions) Protect flow paths and emergency overflows Manipulate timing of peak flow Divert water Control rate of peak flow Detain and slowly release flow Reuse water for beneficial purposes Employ Green Infrastructure (GI) and Low Impact Development (LID) standards Modify susceptibility Elevate structures Acquire at-risk properties Reduce impacts Floodproof structures Enforce substantial improvement limits Elevate utilities Encourage flood insurance Encourage preparedness planning Encourage resilient landscaping Provide risk audits Limit infiltration and inflow to the sanitary system Maintaining existing floodplain infrastructure 1.3 Clean Water Strategy As part of this 10-year plan, the City of Edina will develop a clean water implementation strategy that outlines a plan for working toward meeting its clean water goals. The strategy will address the City’s approach to meeting the pollutant reduction targets identified through the TMDL and WRAPS process. The strategy will also determine pollutant load reduction targets for nondegradation of water bodies that are not impaired and identify an approach for achieving these stormwater management targets. The clean City of Edina 2017 Comprehensive Water Resource Management Plan 1-4 water implementation strategy will be a 5-year strategy that identifies regular “good housekeeping” stormwater practices and clean water capital improvement projects (CIP) to achieve the goals, including quantification of pollutant removals and preparation of planning-level cost estimates. This information will be used for planning, as well as assessment of cost-benefit for project prioritization. The implementation strategy will be developed in coordination with street reconstruction projects, redevelopment, and other opportunities. Annual or biennial reporting will be included in the strategy to quantify movement toward the City’s goals and track activities for the City’s annual SWPPP and MS4 reporting. The Clean Water Strategy will define clean water goals, the cost and pace of achievement, and plan implementation opportunities based on implementation categories described in Section 15.2.3.1. Each of the clean water improvement opportunity categories identified above have opportunities for partnership with other entities, such as private land owners, watershed districts, non-profit organizations, or other local governmental entities. Comprehensive Water Resources Management Plan (DRAFT) Review and Discussion November 21, 2017 Local Comprehensive Plan Water Resources Chapter Water Supply Plan Wastewater Plan Local Water Plan (Comprehensive Water Resources Management Plan) www.EdinaMN.gov 2 Goal Promote the public health, safety, and general welfare by minimizing losses and disruptions. Work towards community resiliency and vibrancy. 3 Outline •Background information •Key issues, policy gaps, and questions •Flooding •Clean water •Runoff management and drainage •Discussion and feedback www.EdinaMN.gov 4 Anticipated Schedule •October - Energy and Environment Commission. •November - Public comment. •November - Planning Commission. •November - City Council work session. •December – seek approval to submit for stakeholder review. •December/January – Watershed district review period. •End of Q1, 2018 – Adopt local water plan. •Before December 31, 2018 – Local comprehensive plan due. 5 Why update the local water plan? •Better data – contours (LiDAR) and precipitation frequency (Atlas 14). •It’s an opportunity for strategic review of cost, service and risk. •Stormwater management paradigm continues to shift over time. •Set a clear path between policies and implementation efforts. •Increase community capacity to adapt to changing climate and flood risk. •Set strategy to create local clean water goals and plan for meaningful implementation efforts. •Acknowledge conflicting services and tradeoffs to better integrate management of water resources with other City services. 6 Anatomy of the plan •Executive Summary •Intro and Physical Setting •Policies for Water Resources Management •Methodology for Modeling •Results of Modeling by Major Drainage Area •Issues and Implementation Program •Wetlands •References and Appendices Guide services provided by the stormwater utility: •Flood protection •Clean surface waters •Runoff management and drainage Plan purpose and structure 7 Demand For services and understanding of the problem www.EdinaMN.gov 8 Low High Resource Allocation Capital, city-wide, public and private Low High Complex Problem Complexity, Social Mess or a Wicked Problem: social or cultural problem, difficult or impossible to solve. incomplete or contradictory knowledge the number of people and opinions involved the large economic burden the interconnected nature of these problems with other problems Solutions are not right or wrong, but better or worse. www.EdinaMN.gov 9 www.EdinaMN.gov 10 Solutions that promote incremental changes over time gets us closer to the goal. Flooding and runoff management •Improved understanding of flooding. •The extent and number of flooding issues has increased – more than double the amount identified in the current plan (2011). •Improved transparency to communicate issues and inform decisions; •For the public •For City staff •For decision makers •Progress based on current plan: approximately 10% of issues solved (more evaluated but determined infeasible). •What is the right pace of implementation? 11 www.EdinaMN.gov 12 www.EdinaMN.gov 13 Impervious Trend www.EdinaMN.gov 14 2009 2015 Same properties Flooding and runoff management versus drainage – a sidebar www.EdinaMN.gov 15 www.EdinaMN.gov 16 www.EdinaMN.gov 17 Over time: impervious cover increases, sanitary sewer infiltration reduced, drainage paths sediment in or are obstructed, sump flows are added, and drainage issues develop. Common drainage issue examples include: inundation areas in backyards, streets, park and trails. Typically don’t impact principle structures or evacuation routes. www.EdinaMN.gov 18 www.EdinaMN.gov 19 In some cases, solving a drainage problem or series of drainage problems can create or exacerbate a flooding problem. Which competing service is primary? What is the right level of service? What is the right level of protection? What level of risk is acceptable? www.EdinaMN.gov 20 www.EdinaMN.gov 21 In some cases, solving a drainage problem or series of drainage problems can create or exacerbate a flooding problem… In unexpected ways Which competing service is primary? What is the right level of service? What is the right level of protection? What level of risk is acceptable? www.EdinaMN.gov 22 Landlocked basin www.EdinaMN.gov 23 Landlocked basin www.EdinaMN.gov 24 Landlocked basin www.EdinaMN.gov 25 Landlocked basin www.EdinaMN.gov 26 Landlocked basin www.EdinaMN.gov 27 Landlocked basin •Regional flood issues • Areas defined by FEMA • Typically longer duration (days to weeks) • Floodplain Districts Overlay Ordinance (Ch 36) establishes local controls •Local flood issues • Areas defined by City’s local hydrologic and hydraulic model • Typically shorter duration (hours) • Policies in the CWRMP guide engineering standards Potential to codify? www.EdinaMN.gov 28 Categorizing Issues •Categorizing criteria • Number of structures affected, emergency routes, achievability, opportunity, etc. •More issue areas identified with draft plan than in current plan (climate change and imperviousness). •Are we moving in the right direction? •How do we creatively solve problems? •How do we plan for resiliency? 29 Overall strategies for flood issues and runoff management - implementation •Infrastructure improvement strategy • Improvements in conjunction with neighborhood roadway reconstruction projects and with standalone projects • Operation and maintenance of existing infrastructure •Development/redevelopment strategy • Opportunistic, planning new construction to reduce risk • Potential for shifts in neighborhood character •Promote resiliency • Flood risk information informs actions and investment 30 Flood Risk Reduction Strategy •See Executive Summary attachment 31 Inundation area virtual tour •https://www.barr.com/maps/edina/index.html#/-93.3600/44.8918/13 www.EdinaMN.gov 32 Clean Water •Current strategy is to meet minimum standards •Lack of clear path for solving problems • Related to understanding of the problem, policy gaps, prioritization (of clean water problems and of water resource problems in general). • Current strategies typically include a narrow ‘dig it bigger, dig it deeper’ approach. • Current plan assumes wetlands, lakes, and ponds are used for stormwater treatment for creeks. Conflicts with local expectations for those water resources. •Issues not yet identified – need a strategy 33 •Excess nutrients and eutrophication •Harmful algal blooms •Low dissolved oxygen •Chloride •Land use •Aquatic recreation •Aquatic habitat •Aquatic life •Ecosystem services •Public health •Drinking water source (groundwater) protection Clean water services 34 Stressors Clean Water Strategy •CWRMP lays out a framework for establishing a Clean Water Strategy. •More dynamic. •Creates a path to define the allocation of resources, pace, location, etc. for making progress on goals. •Sets a framework for going beyond checking the boxes of the minimum standard required by the law, per City Council direction. •Better alignment with Watershed activities should be key part of strategy. www.EdinaMN.gov 35 Discussion - Flooding •Should the City codify regional flooding standards for local flooding issues? •Should the City develop a plan for voluntary acquisition of “at-risk” properties? •Should the City have an impervious lot coverage limit? Consider impacts to development. 36 Nuisance / Impounded Waters •Should the City provide pumping services for non-structural flooding issues? •Some private drainage issues can be solved, should the City provide a technical assistance program for engineering solutions (when feasible) for up to $4,000 per issue? 37 Discussion – Clean Water •What are the clean water concerns you’re hearing? •What is your perception of progress related to clean water? 38 Comprehensive Water Resources Management Plan (DRAFT) Review and Discussion November 21, 2017 Local Comprehensive Plan Water Resources Chapter Water Supply Plan Wastewater Plan Local Water Plan (Comprehensive Water Resources Management Plan) www.EdinaMN.gov 2 Goal Promote the public health, safety, and general welfare by minimizing losses and disruptions. Work towards community resiliency and vibrancy. 3 Outline •Background information •Key issues, policy gaps, and questions •Flooding •Clean water •Runoff management and drainage •Discussion and feedback www.EdinaMN.gov 4 Anticipated Schedule •October -Energy and Environment Commission. •November -Public comment. •November -Planning Commission. •November -City Council work session. •December –seek approval to submit for stakeholder review. •December/January –Watershed district review period. •End of Q1, 2018 –Adopt local water plan. •Before December 31, 2018 –Local comprehensive plan due. 5 Why update the local water plan? •Better data –contours (LiDAR) and precipitation frequency (Atlas 14). •It’s an opportunity for strategic review of cost, service and risk. •Stormwater management paradigm continues to shift over time. •Set a clear path between policies and implementation efforts. •Increase community capacity to adapt to changing climate and flood risk. •Set strategy to create local clean water goals and plan for meaningful implementation efforts. •Acknowledge conflicting services and tradeoffs to better integrate management of water resources with other City services. 6 Anatomy of the plan •Executive Summary •Intro and Physical Setting •Policies for Water Resources Management •Methodology for Modeling •Results of Modeling by Major Drainage Area •Issues and Implementation Program •Wetlands •References and Appendices Guide services provided by the stormwater utility: •Flood protection •Clean surface waters •Runoff management and drainage Plan purpose and structure 7 Demand For services and understanding of the problem www.EdinaMN.gov 8 Low High Resource Allocation Capital, city-wide, public and private Low High Complex Problem Complexity, Social Mess or a Wicked Problem: social or cultural problem, difficult or impossible to solve. incomplete or contradictory knowledge the number of people and opinions involved the large economic burden the interconnected nature of these problems with other problems Solutions are not right or wrong, but better or worse. www.EdinaMN.gov 9 www.EdinaMN.gov 10 Solutions that promote incremental changes over time gets us closer to the goal. Flooding and runoff management •Improved understanding of flooding. •The extent and number of flooding issues has increased –more than double the amount identified in the current plan (2011). •Improved transparency to communicate issues and inform decisions; •For the public •For City staff •For decision makers •Progress based on current plan: approximately 10% of issues solved (more evaluated but determined infeasible). •What is the right pace of implementation? 11 www.EdinaMN.gov 12 www.EdinaMN.gov 13 Impervious Trend www.EdinaMN.gov 14 2009 2015 Same properties Flooding and runoff management versus drainage –a sidebar www.EdinaMN.gov 15 www.EdinaMN.gov 16 www.EdinaMN.gov 17 Over time: impervious cover increases, sanitary sewer infiltration reduced, drainage paths sediment in or are obstructed, sump flows are added, and drainage issues develop. Common drainage issue examples include: inundation areas in backyards, streets, park and trails. Typically don’t impact principle structures or evacuation routes. www.EdinaMN.gov 18 www.EdinaMN.gov 19 In some cases, solving a drainage problem or series of drainage problems can create or exacerbate a flooding problem. Which competing service is primary? What is the right level of service? What is the right level of protection? What level of risk is acceptable? www.EdinaMN.gov 20 www.EdinaMN.gov 21 In some cases, solving a drainage problem or series of drainage problems can create or exacerbate a flooding problem… In unexpected ways Which competing service is primary? What is the right level of service? What is the right level of protection? What level of risk is acceptable? www.EdinaMN.gov 22 Landlocked basin www.EdinaMN.gov 23 Landlocked basin www.EdinaMN.gov 24 Landlocked basin www.EdinaMN.gov 25 Landlocked basin www.EdinaMN.gov 26 Landlocked basin www.EdinaMN.gov 27 Landlocked basin •Regional flood issues •Areas defined by FEMA •Typically longer duration (days to weeks) •Floodplain Districts Overlay Ordinance (Ch 36) establishes local controls •Local flood issues •Areas defined by City’s local hydrologic and hydraulic model •Typically shorter duration (hours) •Policies in the CWRMP guide engineering standards Potential to codify? www.EdinaMN.gov 28 Categorizing Issues •Categorizing criteria •Number of structures affected, emergency routes, achievability, opportunity, etc. •More issue areas identified with draft plan than in current plan (climate change and imperviousness). •Are we moving in the right direction? •How do we creatively solve problems? •How do we plan for resiliency? 29 Overall strategies for flood issues and runoff management -implementation •Infrastructure improvement strategy •Improvements in conjunction with neighborhood roadway reconstruction projects and with standalone projects •Operation and maintenance of existing infrastructure •Development/redevelopment strategy •Opportunistic, planning new construction to reduce risk •Potential for shifts in neighborhood character •Promote resiliency •Flood risk information informs actions and investment 30 Flood Risk Reduction Strategy •See Executive Summary attachment 31 Inundation area virtual tour •https://www.barr.com/maps/edina/index.html#/-93.3600/44.8918/13 •Interactive Water Resources Map on the City’s website www.EdinaMN.gov 32 Clean Water •Current strategy is to meet minimum standards •Lack of clear path for solving problems •Related to understanding of the problem, policy gaps, prioritization (of clean water problems and of water resource problems in general). •Current strategies typically include a narrow ‘dig it bigger, dig it deeper’ approach. •Current plan assumes wetlands, lakes, and ponds are used for stormwater treatment for creeks. Conflicts with local expectations for those water resources. •Issues not yet identified –need a strategy 33 •Excess nutrients and eutrophication •Harmful algal blooms •Low dissolved oxygen •Chloride •Land use •Aquatic recreation •Aquatic habitat •Aquatic life •Ecosystem services •Public health •Drinking water source (groundwater) protection Clean water services 34 Stressors Clean Water Strategy •CWRMP lays out a framework for establishing a Clean Water Strategy. •More dynamic. •Creates a path to define the allocation of resources, pace, location, etc. for making progress on goals. •Sets a framework for going beyond checking the boxes of the minimum standard required by the law, per City Council direction. •Better alignment with Watershed activities should be key part of strategy. www.EdinaMN.gov 35 Discussion -Flooding •Should the City codify regional flooding standards for local flooding issues? •Should the City develop a plan for voluntary acquisition of “at-risk” properties? •Should the City have an impervious lot coverage limit? Consider impacts to development. 36 Nuisance / Impounded Waters •Should the City provide pumping services for non-structural flooding issues? •Some private drainage issues can be solved, should the City provide a technical assistance program for engineering solutions (when feasible) for up to $4,000 per issue? 37 Discussion –Clean Water •What are the clean water concerns you’re hearing? •What is your perception of progress related to clean water? 38 www.EdinaMN.gov 39 www.EdinaMN.gov 40 •260 open work orders (as of 11/21/2017) www.EdinaMN.gov 41 www.EdinaMN.gov 42 Alignment with mission and vision Our mission is to provide effective and valued public services, maintain a sound public infrastructure, offer premier public facilities and guide the development and redevelopment of lands, all in a manner than sustains and improves the health and uncommonly high quality of life enjoyed by our residents and businesses www.EdinaMN.gov 43 •What services do you use that rely on water? •How does flood protection, runoff management, clean surface waters, and drainage affect quality of life? •How does the development and redevelopment of land affect water? •How effective are our actions at sustaining or improving service? Rainfall frequency map 44 Road and Utilities Sanitary / Water / Transport Electric / Communications / Gas Sanitary / Water / Transport Electric / Gas / Communications 45 46 Policy Reference: Ch10, Art 4 (10-110, sec 7) 47 Policy Reference: Ch 36, Art 12 (36-1257) 48 5712 Woodland Lane example www.EdinaMN.gov 49 •City of Edina •1908 www.EdinaMN.gov 50