HomeMy WebLinkAbout2019-03-05 City Council Work SessionAgenda
City Council Work Session
City of Edina, Minnesota
Community Room
Tuesday, March 5, 2019
5:30 PM
I.Call To Order
II.Roll Call
III.Water Resources Management: Morningside Neighborhood Flood
Risk Reduction Strategy, Lake Cornelia Clean Water Strategy, and
Chloride Pollution Prevention
IV.Adjournment
The City of Edina wants all residents to be comfortable being part of the public
process. If you need assistance in the way of hearing ampli+cation, an
interpreter, large-print documents or something else, please call 952-927-8861
72 hours in advance of the meeting.
Date: March 5, 2019 Agenda Item #: III.
To:Mayor and City Council Item Type:
Reports / Recommendation
From:Jessica Wilson, Water Resources Coordinator
Item Activity:
Subject:Water Resources Management: Morningside
Neighborhood Flood Risk Reduction Strategy, Lake
Cornelia Clean Water Strategy, and Chloride Pollution
Prevention
Discussion
CITY OF EDINA
4801 West 50th Street
Edina, MN 55424
www.edinamn.gov
ACTION REQUESTED:
None. Discussion only.
INTRODUCTION:
See attached staff report.
ATTACHMENTS:
Description
Staff Report: Water Resources Management
Lake Cornelia Buffer: Draft Letter to Directly Adjacent Properties
Lake Cornelia Vegetated Buffer for Clean Water Fact Sheet
Staff Presentation
March 5, 2019
Mayor and City Council
Jessica Wilson, Water Resources Coordinator
Ross Bintner, P.E., Environmental Services Manager
Water Resources Management: Morningside Neighborhood Flood Risk Reduction Strategy,
Lake Cornelia Clean Water Strategy, and Chloride Pollution Prevention
Information / Background:
The purpose of this water resources management discussion is to 1) provide an update to the Flood Risk
Reduction Strategy effort in the Morningside neighborhood and get clarification on the project scope, 2)
inform the Council of a proposed project at Lake Cornelia in support of the future Clean Water Strategy,
and 3) provide a brief update on the chloride pollution prevention project to develop a model contract for
snow and ice management.
Morningside Neighborhood Flood Risk Reduction Strategy
Background – Comprehensive Water Resources Management Plan and Flood Risk Reduction
Strategy
In September 2018 City Council adopted the 2018 Comprehensive Water Resources Management Plan. The
implementation section of the plan included a Flood Risk Reduction Strategy to outline a plan for working
toward reducing flood risk. Based on Council and community feedback, the Morningside neighborhood was
selected as the focal geography for the Flood Risk Reduction Strategy.
According to the Comprehensive Water Resources Management Plan, the Flood Risk Reduction Strategy
will detail the City’s approach to addressing flood-prone areas based on the following implementation
categories;
• Engineered Improvements – flood risk reduction strategies will be implemented through engineered
capital improvement projects, such as increasing stormwater discharge capacity, creating additional
upstream stormwater storage, diverting stormwater, and/or grading and landscape modifications.
These may occur as standalone flood and drainage projects or in conjunction with other projects
such as neighborhood roadway reconstruction or parks improvements.
• Anticipated Redevelopment – flood risk reduction strategies will be implemented as redevelopment
occurs, through stormwater infrastructure improvements, grading and landscape modifications,
and/or raising structures above flood elevations
STAFF REPORT Page 2
• Residential Redevelopment – flood risk reduction strategies will be implemented as homes are
remodeled or reconstructed, through private stormwater infrastructure improvements, grading and
landscape modifications, and/or raising structures above flood elevations.
• Incentivized Retrofits – where engineered improvements are cost prohibitive or not feasible due to
site constraints and redevelopment is not anticipated the City may provide incentives to property
owners to conduct grading and landscape modifications or modify structures to reduce flood risk.
• Risk Acceptance – where engineered improvements to reduce flood risk are cost prohibitive or not
feasible due to site constraints, and redevelopment is not anticipated, it may be necessary to accept
a lower level of protection.
Making incremental improvements to address flooding issues throughout the city will require a mix of capital
infrastructure investments, programmatic approaches (development/redevelopment permit review), and
regular operation and maintenance. Along with the approaches described above, a suite of tools and actions
may be implemented to modify flood risk, modify susceptibility to flood risk, and/or reduce impacts of
flooding.
When completed, the Flood Risk Reduction Strategy will be included as an amendment to the
Comprehensive Water Resources Management Plan.
Although the Comprehensive Water Resources Management Plan outlines an incremental approach to flood
protection over a generational time frame, staff heard from Council a desire to better understand what it
would take to solve the issue in the Morningside neighborhood; to show a broad range of options that
would accomplish the goal of solving flood issues without constraining options to a budget.
The Flooding Problem
Weber Pond is a constructed stormwater pond built in the late 1960s. At the time of construction, the
pond was sized to accommodate a 2-percent-annnual chance (50-year) storm event. A 1-percent-annual
chance (100-year) storm event is current standard practice.
Additionally, climatologists indicate that large, intense rainfall events are occurring more frequently and
climate change predictions indicate large rainfall events will become more extreme in the future in this
region. With the update to the Comprehensive Water Resources Management Plan, the most recent
precipitation frequency estimates were incorporated into the City’s flood model which showed increased
flood risk throughout the City. It should be noted that the data brings us to current climate conditions and
does not provide protection for future risk caused by climate change.
An increasing impervious trend in the Morningside neighborhood also contributes to increased flood risk.
Nearly one million square feet of impervious surfaces (structures, driveways, patios, swimming pool decks)
have been added since 1950. This equates to about 14% of the total size of occupied parcels in the
Morningside neighborhood (2019, City of Edina staff).
Service level expectations have also increased.
• Land use: “We want homes, driveways, patios, walkways, pools, trees, parks, roads and more.”
• Drainage: “Drain the land, make it useable. Dry the soils so we can build homes and grow grass.”
• Stormwater management: “Make the water flow away quickly in planned areas that do not erode or
back water on to my property.”
• Flood management: “Protect lives and property.”
STAFF REPORT Page 3
Initial options exploration and future opportunities
Several mitigation options have been explored to date that work solely in the public right of way and parks.
None of the options removed all risk for all properties. Tradeoffs for these mitigation options involve bigger
pipes, underground storage chambers, pump stations, construction disruptions, acres of trees removed, and
public open spaces regraded and lowered.
Development of the Flood Risk Reduction Strategy in 2019 allows for scoping of stormwater management
opportunities in the Weber Woods open space as well as street reconstruction projects anticipated for
2022 and 2023.
What kind of problem is it?
Flooding has traditionally been considered a technical problem, requiring a technical solution.
The reality is that land ownership, space, legislation, and hydrology are interwoven with values about
problem ownership, water stewardship, service tradeoffs, and transferring risk. What was once considered
purely a technical problem may be more of a mix of a technical, scientific, political, and social one. This type
of problem requires a different set of strategies, skill sets, and tools.
Timothy M. Gieseke. Shared Governance for Sustainable Working Landscapes
The intent of the Flood Risk Reduction Strategy is to couple the conventional technical approach with
scientific, political, and social problem solving strategies. Sectors in which we are already involved include:
• Stormwater utility (public infrastructure)
• Land use permitting (land use, private infrastructure)
• Issue investigation (community capacity, private infrastructure)
• Parks (land use, public infrastructure)
• Roads (land use, public infrastructure)
• Emergency response
• Risk communication
• New grant program (community capacity)
Key questions
Where do we go next? Where should we focus our effort?
What tradeoffs are we willing to make?
What does success look like?
Who do we involve and how?
STAFF REPORT Page 4
Past reports to Council
November 21, 2017 – Work Session – Draft 2018 Comprehensive Water Resources Management Plan
Presentation for Review and Comment
January 17, 2018 – Authorize Staff to Submit Draft Comprehensive Water Resources Management Plan for
Agency Review
April 3, 2018 – Work Session – Comprehensive Water Resources Management Plan – Implementation
Discussion
September 5, 2018 – Adoption of 2018 Comprehensive Water Resources Management Plan
Water Resources Library – Historical Morningside Neighborhood Stormwater Reports
Lake Cornelia Clean Water Strategy - Vegetated Buffer for Clean Water
Lake Cornelia has been listed on the federal 303(d) Impaired Waters List for eutrophication due to excess
nutrients, namely phosphorus. Additionally, the presence of Harmful Algal Blooms and algal toxins have been
measured at levels that have initiated a public health advisory. Significant nutrient reductions are required to
meet clean water goals and address public safety concerns.
Based on feedback from Council and the community, Lake Cornelia has been selected as the focal geography
for a future Clean Water Strategy to be developed in 2020 per the Comprehensive Water Resources
Management Plan.
The 2020 Clean Water Strategy will leverage the current work of other agencies. The Minnesota Pollution
Control Agency is nearly done with a Total Maximum Daily Load Study and Watershed Restoration and
Protection Strategy which quantifies the pollutant reductions necessary to see measurable improvement in
the water quality at Lake Cornelia. The Nine Mile Creek Watershed District Use Attainability Analysis
update includes a lake study to evaluation of the cost, location, and value of a variety of stormwater
management interventions.
The vegetated buffer for clean water project (map attached) provides an early stormwater intervention
opportunity. It involves converting 3 acres of parkland, including approximately 1,600 linear feet of shoreline,
from conventional turf and buckthorn to a vegetated buffer along the west side of the south basin of Lake
Cornelia, adjacent to West Shore Drive and Laguna Drive. Upon completion, the restored area will be
placed into a conservation easement.
The attached fact sheet describes the project area and purpose. A draft copy of the letter for direct mail to
properties directly adjacent to the project is also included.
Engagement strategy
• Direct mail letter to properties abutting restoration site
• Email to Lake Cornelia Lake Group Directors to circulate among their group
• City Extra notification to Water Resources list and Lake Cornelia Neighborhood list
• Project updates via email to Lake Cornelia Lake Group Directors and City Extra email notifications
STAFF REPORT Page 5
Proposed schedule
• March 2019 – Engage stakeholders, introduce project
• March 22, 2019 - Nine Mile Creek Watershed District cost share grant application due
• Spring 2019 – Request proposals from service providers for design and construction
• Late Spring 2019 – Seek Council approval and contract award
• Summer/early fall – Design and construction
• 2020 and beyond – Annual maintenance
Past reports to Council
See Comprehensive Water Resources Management Plan references under the Morningside Neighborhood
Flood Risk Reduction Strategy portion of this report.
Chloride Pollution Prevention - Model Contract for Snow and Ice
Management
The City of Edina convened a diverse advisory committee of service providers, property managers, and
other interested representatives to develop a model contract for snow and ice management services. The
main focus of this work is to offer a model contract that embraces best practices to minimize environmental
impacts from sand, chlorides and other chemicals, while also maintaining safety and addressing liability risk
allocation. The model was developed as a way to move the private industry forward in smart salting. To the
best of our knowledge, this is the first snow and ice services contract to include best practices concepts as
an element of professional snow and ice management.
The model contract, cover letter, and explanatory memo are available on Edina’s website at
https://www.edinamn.gov/422/Pollution-Prevention as well as on the Minnesota Pollution Control Agency
website at https://www.pca.state.mn.us/water/statewide-chloride-resources.
Aside from developing the model contract deliverable, a notable aspect of the project is that it was initiated
and championed largely by a grassroots group of Edina residents, who are also trained Master Water
Stewards.
Staff were invited to present the project at the 18th Annual Road Salt Symposium in February.
In February 2018, City Council passed a resolution of support of a state law to limit liability for private
commercial salt applicators who are Smart Salting certified through the Minnesota Pollution Control Agency
and was the first city to do so. The 2018 bill ultimately failed. Reintroducing the bill was a 2019 priority for
the Legislative Water Commission, a bi-partisan commission that makes recommendations to the Legislature
regarding water resources. House bill HF1502 has been introduced (authored by Rep. Fischer, Rep. Hansen,
Rep. Torkelson, Rep. Edelson, Rep. Heintzeman, and Rep. Moller). A companion Senate bill SF1667 has also
been introduced (authored by Sen. Ruud, Sen. Anderson, Sen. Hall, Sen. Ingebrigtsen, and Sen Tomassoni).
The City of Edina continues to be a leader in addressing chloride pollution. View this January 2019 City
Extra notification for a summary of the issue, major players in addressing the problem (both public and
private realms, ranging from individuals to institutions), resources, and initiatives to track.
https://mailchi.mp/edinamn/salt-chloride-pollution-a-growing-problem-for-minnesotas-water.
STAFF REPORT Page 6
Past reports to Council
February 7, 2018 – Staff recommendation to adopt a resolution in support of a state law to limit liability for
private commercial salt applicators
August 21, 2018 – Development of model winter maintenance contract for chloride reduction
March x, 2019
Dear Resident,
This letter is to inform you of an improvement to the public space along Lake Cornelia adjacent to your home.
The attached fact sheet provides an overview of the project as well as a map of the City property where a
vegetated buffer will be planted.
Why plant a vegetated buffer along Lake Cornelia?
Buffers promote lake health, help filter pollutants, and provide pollinator habitat. In addition to these natural
resource and sustainability benefits, less mowing means savings in fuel and labor.
Why here and now?
Lake Cornelia is not meeting goals for lake health. Excess algae, including blue-green algae that can produce
toxins, were recorded in 2016 and 2017 initiating public health advisories.
The City has identified Lake Cornelia as a priority waterbody for making progress toward clean water goals.
This timely project leverages studies and anticipated capital investment of partner agencies including the
Minnesota Pollution Control Agency and the Nine Mile Creek Watershed District.
An inventory of turf grass areas managed by the City was recently completed. Staff are using this information to
identify opportunities to transition to alternatives to conventional turf grass such as vegetated buffers.
How will this space be managed?
The attached map shows the approximate area that will be restored to a native vegetated buffer. The City will
mow its property in the buffer area less frequently, approximately 1-3 times per year. This strategy encourages
native plants and helps to minimize undesirable species such as buckthorn. Signs will be placed on public
property to clearly mark the buffered area boundary.
How do I stay informed?
To stay informed on water resources topics including the Lake Cornelia Vegetated Buffer for Clean Water
project, subscribe to City Extra email notifications for water resources updates at www.EdinaMN.gov/cityextra.
What does a vegetated buffer look like?
Native restorations offer a variety of colors and textures. There is a lot to look forward to as new plants grow
in. Like most gardens, native restorations can take up to three years to establish and reach their full beauty.
Think of the longstanding gardening quote:
Year one, they sleep…The surface may look patchy, but
underground native plants are building massive root systems that
improve the health of the soil and help rainwater to soak into the
ground.
Year two, they creep…Plants begin to fill in above ground.
Most of the energy is spent growing in size and deepening roots,
but some will begin to bloom. As these plants become more
established, they can outcompete many common weed species.
Year three, they leap! Native vegetation becomes established
and fills in the landscape. Plants have reached mature sizes and
blooms are more common. Annual maintenance includes weed
control and managing for undesirable invasive plants like
buckthorn.
We welcome your questions and comments as we make
progress toward a healthier Lake Cornelia.
Your partners in clean water,
Jessica V. Wilson, CFM
Water Resources Coordinator
JWilson@EdinaMN.gov
952-826-0445
Tom Swenson
Assistant Director – Parks & Natural Resources
TSwenson@EdinaMN.gov
952-826-0317
Braemar Academy 9 Golf Course, vegetated buffer.
Year 1, September
Year 2, July
Year 2, July
Year 3, June
Contact
Jessica Wilson
Water Resources Coordinator
JWilson@EdinaMN.gov
952-826-0445
Tom Swenson
Assistant Director
Parks and Natural Resources
TSwenson@EdinaMN.gov
952-826-0317
Why is this project being
done?
Clean Water. Lake Cornelia is
polluted with excess nutrients,
mainly phosphorus. Excess
phosphorus fuels algae, including
harmful blue-green algae blooms.
Vegetated buffers promote clean
water by filtering nutrients from
water before it enters the lake.
Habitat. Native plants support
wildlife, including pollinators. The
project includes active
management of invasive
buckthorn.
Sustainability.Native
landscapes require less mowing
which means savings in labor and
equipment costs, fewer carbon
emissions, and a more resilient
landscape in a changing climate.
What does the project
include?
•Removal of turf and invasive
buckthorn on City property
•Restoration with native plants
•Ongoing maintenance
•Conservation easement
Lake Cornelia
Vegetated Buffer for Clean Water
When would the project
occur?
Anticipated 2019 construction.
How would the project be funded?
The project will be funded through the stormwater utility fund. No part of
the project would be special assessed to property owners.
February 2019
The CITY of
EDINA
Flood Risk Reduction Strategy Development
Ross Bintner
Jessica V. Wilson
March 5, 2019 –City Council Worksession
The CITY of
EDINA
How this project started:
•The City’s guide for delivery of flood
protection, runoff management, and
clean water services. New information.
•Plan takes incremental improvement or
no new risk approach.
•Council; “Show us what it takes to
solve it. Don’t worry about the budget.
Show us a range of options. We want
to give people what they want.”
www.EdinaMN.gov 2
The CITY of
EDINA
•$250k for FRRS -$50K for combined
model effort = $200K remaining
•Focus on Morningside geography
•Planning for Weber Woods
•Planning for 2022-23 neighborhood
reconstruction
•We are just starting to plan this effort
and want to know what opportunities
are you willing to consider? Not?
Flood Risk Reduction Strategy
www.EdinaMN.gov 3
Red = regional (FEMA)
Orange = local
The CITY of
EDINAOutline
Review -These are the drivers that lead to this problem.
A Paradigm Shift?
•Is flooding a technical problem or something more?
Questions that help guide what solutions we are willing to consider
•What does success look like?
•Which sector do you see opportunities: Land use, awareness, stormwater
utility, park redevelopment, road projects, community capacity
•How and when to engage the public?
www.EdinaMN.gov 4
The CITY of
EDINA
www.EdinaMN.gov 5
Regional +Local
Driver 1: Perception. We have
new data, and we can visualize it
The CITY of
EDINA
Driver 2: More rain (Climate
Change)
www.EdinaMN.gov 6
Past data source
(published 1961)
Current data source
(published 2013)
Forecasted future
(mid-21st century)
The CITY of
EDINADriver 3: More runoff
www.EdinaMN.gov 7
1950
2000
2015
2
51
184 201
142
63
14
0
50
100
150
200
250
Count of ParcelsPercent Impervious
Count of parcels in various percent impervious ranges in
the Morningside neighborhood (2019, City of Edina Staff).
The CITY of
EDINADriver 3: More runoff
•Nearly one million square
feet of impervious surfaces
added since 1950
(about 14% of the total
area of occupied parcels)
•What will 2030 look like?
www.EdinaMN.gov 8
Total impervious area for developed residential
parcels in the Morningside neighborhood (2019, City
of Edina Staff).
The CITY of
EDINADriver 4: Service level
expectations
•Land use: “We want homes, driveways, patios, walkways, pools,
trees, parks, roads and more”
•Drainage: “Drain the land, make it usable to build homes and grow
grass” “I want a useable basement”
•Stormwater management: “Make the water flow away quickly “
“store water in planned areas” “Don’t erode or back water on my
property”
•Flood management: “Protect lives and property”
www.EdinaMN.gov 9
The CITY of
EDINAOther drivers
•Scale and pace of change. “it took 70-100 years to get into this, how
long to get out?” “we built over wetlands”
•Problem solving vs. risk management “One property's solution is
another's problem”
•Regulatory approach vs. utility approach: “do the minimum required
for this project” vs. “Design a system to provide a service”
•Utility approach vs. social approach: “>2/3 of land is privately owned,
and must be part of the solution”
•Water + gravity: “Inconsistently consistent.”
•Contradiction of dual mandate: “Flood protection and clean water”
www.EdinaMN.gov 10
The CITY of
EDINAIs there consensus on values
around flooding?
City Position; All land uses generate runoff but properties and facilities near low
areas bear most of the risk.
•Viewpoint 1; “The city should fix this.” “The amount I have to pay to design
this is unreasonable” “if the pipes were bigger, I wouldn’t have this problem”
•Viewpoint 2; “Some rain events are so large they overwhelm storage and pipe
capacity.“ “This will take a sustained and coordinated effort to solve” “We are
willing to make tradeoffs as we build our home, driveway, road, patio, sport
court, and landscaping to protect our property and others from flooding.”
www.EdinaMN.gov 11
The CITY of
EDINAIs there consensus on knowledge
around flooding?
City Position; People learn about this topic when they have had an issue, after
a flood or at the point of decision when they are asked to consider it.
•Viewpoint 1; “This is caused by my neighbors runoff” “Why are you trying
to limit flow?”
•Viewpoint 2; “I am responsible for my own site drainage” “The runoff from
my site affects me and anyone downstream” “Climate change is making this
issue worse” “I need resources to reduce my risk”
www.EdinaMN.gov 12
The CITY of
EDINAWhat kind of problem is flooding?
www.EdinaMN.gov 13
Timothy M. Gieseke
Shared Governance for
Sustainable Working Landscapes
Consensus Disagreement
Consensus Technical Political
Disagreement Scientific Social
Values
Knowledge
The CITY of
EDINAWhere the City is involved now
(sectors)
1.Stormwater utility (public infrastructure)
2.Land use permitting (land use, private infrastructure)
3.Issue investigation (community capacity, private infrastructure)
4.Parks (land use, public infrastructure)
5.Roads (land use, public infrastructure)
6.Emergency response
7.Risk communication
8.New grant program (community capacity)
www.EdinaMN.gov 14
The CITY of
EDINAWhat we’ve looked into so far
(technical, public infrastructure)
•Several mitigation options explored that work solely
in public right of way and parks, none removed all
risk for all properties.
•Go Big: reduce 20-30% of flood risk ($3-4M)
•Go Bigger: reduce 30-40% of flood risk ($6-7M)
•Significant tradeoffs: Bigger pipes, underground
chambers, pump stations, construction disruption,
acres of tree removal, public open spaces regraded
and lowered
•Will a ‘technical only’ approach keep up with drivers?
www.EdinaMN.gov 15
The CITY of
EDINA
www.EdinaMN.gov 16
The CITY of
EDINAKey Questions for Council
1.What are the priority outcomes?
2.What does success look like?
3.What questions do you need answered?
4.How should we bring the public in to the conversation?
5.Who should we be talking to?
6.Who should we be learning from?
(next page –possible next steps)
www.EdinaMN.gov 17
The CITY of
EDINAWhere do we go next?
Possible efforts:
1.Preliminary technical scope of what the City could build to reduce
flood risk? (2022-23 reconstruction, Weber Woods, other?)
2.Public engagement around infrastructure tradeoffs
3.Individualized risk reduction advice to homeowners
4.Policy review around land use/water policy
5.Public engagement around land use/water policy
6.Other ideas?
www.EdinaMN.gov 18
The CITY of
EDINAClean Water Strategy
•Lake Cornelia focal geography
•2020 Clean Water Strategy Development
•Leveraging current efforts of the Minnesota Pollution Control Agency
and the Nine Mile Creek Watershed District
•Vegetated buffer project
•Clean Water. Lake Cornelia is polluted with excess nutrients, mainly phosphorus. Excess
phosphorus fuels algae, including harmful blue-green algae blooms. Vegetated buffers promote
clean water by filtering nutrients from water before it enters the lake.
•Habitat. Native plants support wildlife, including pollinators. The project includes management
of invasive buckthorn.
•Sustainability.Native landscapes require less mowing which means savings in labor and
equipment costs, fewer carbon emissions, and a more resilient landscape in a changing climate.
www.EdinaMN.gov 19
The CITY of
EDINALake Cornelia
vegetated buffer
•Removal of turf and
invasive buckthorn on
City property
•Restoration with native
plants
•Ongoing maintenance
•Conservation easement
www.EdinaMN.gov 20
The CITY of
EDINAChloride Pollution Prevention
•City of Edina continues to be a leader
•2018 City Council Resolution of Support for state
law to limit liability for Smart Salting Certified
private commercial salt applicators
•Model contract for snow and ice management
•Embraces best practices to minimize environmental impacts while
maintaining safety and addressing liability risk allocation.
•Initiated and championed largely by a group of Edina residents.
•2019 bills re-introduced
www.EdinaMN.gov 21