City Council

Minutes of the Millcreek City Council August 11, 2025 6:00 p.m. Work Meeting 7:00 p.m. Regular Meeting The City Council of Millcreek, Utah, met in a public work meeting and regular meeting on August 11, 2025, at City Hall, located at 1330 E. Chambers Avenue, Millcreek, UT 84106. The meeting was recorded for the City's website and had an option for online public comment. PRESENT: Councn Members City Staff Jeff Silvestrini, Mayor (excused) Mike Winder, City Manager Silvia Catten, District 1 Elyse Sullivan, City Recorder Thom DeSirant, District 2 Francis Lilly, Assistant City Manager Cheri Jackson, District 3 John Brems, City Attorney Bev Uipi, District 4 Kurt Hansen, Facilities Director Rita Lund, Communications Director Carlos Estudillo, Planner Kayla Mayers, Promise Program Director Planning Commissioners: Diane Soule, Dwayne Vance, Christian Larsen, Nils Per Lofgren, Shawn LaMar, Victoria Reid (electronic) Attendees: Peter Frost, James Alfandre, Jordan Dejarnett, Chief Petty-Brown, Laura Renshaw, Jory Walker WORK MEETING - 6:00 p.m. TIME COMMENCED: 6:02 p.m. Mayor Pro Tempore Uipi called the work meeting to order. 1. Joint Planning Commission Meeting: Francis Lilly said there are currently two projects subject to the City Center Overlay Development Agreement Zone (CCOZ-DA) concept, the Villa Vista project and the Millcreek Common East project. As part of the required process, both projects will participate in informal meetings with the Planning Commission and City Council. These meetings, consistent with past practice, are intended to gather initial impressions and provide early guidance to the applicants as they prepare formal submissions. The Villa Vista project is expected to submit its application soon, in time for the September meetings, while the Millcreek Common East project is anticipated to follow with its application the following month. Millcreek City Council Meeting Minutes 11 August 2025 Page 2 of 9 Carlos Estudillo gave an overview of the CCOZ-DA process. The process provides an opportunity for properties within the zone to pursue flexible development options that may not strictly align with underlying code requirements. A development agreement must be recommended by the Planning Cornrnission and approved by the City Council, and applicants must meet specific public benefit criteria to qualify. The agreement serves as a tool to enable enhanced design or features not explicitly addressed in the code, provided that the proposal delivers clear public benefits. To qualify, a project must meet at least one of several public benefit standards, such as offering enhanced open space (minimum 1,000 square feet or 10% of the lot area), providing publicly accessible parking (at least 100 spaces), or including affordable housing (a minimum of 20% of units priced at or below 80% of the area median income, along with qualification for incentives under the city's affordable housing ordinance). Notably, requests involving signage or building height alone are not eligible for development agreements. The process begins with a pre-application phase, which includes a neighborhood meeting (with residents within 600 feet), a community council meeting (such as the Millcreek Community Council), and a joint work session with the Planning Commission and City Council. This phase is designed to gather input, identify potential concerns, and lay the groundwork for a formal application. Following the pre-application, the formal process includes review by the community council, a public hearing and recommendation from the Planning Commission, and review and adoption by the City Council. Applicants must submit a schematic site plan and address any reasonably anticipated detrimental effects, such as those related to land use conflicts. Development agreements may incorporate design enhancements that serve as alternatives to code-based requirements, including facade modulation, roofline variation, additional open space, balconies, upper-story transparency, diagonal building corners, and architectural treatments that improve the street experience. These enhancements must adequately mitigate potential impacts and align with city goals to qualify for approval. a. The Villa Vista Rowhome Development James Alfandre and Jordan Dejarnett, developers, said with its strong walkability and vibrant energy, the site for this project was deemed particularly well-suited for townhomes and homeownership. The 18 townhomes featuring three- and four-bedroom units and two- car garages are designed to appeal to families. Estudillo showed the council renderings of the building elevations. He said the proposed development is a row house-style townhome project, which differs from the typical mixed- use or apartment-style buildings anticipated in the City Center Overlay Zone. That overlay contains architectural requirements, such as step-backs and fagade articulation, designed primarily for larger, taller buildings to avoid monolithic appearances. To align more closely with the intent of the overlay zone while accommodating the distinct characteristics of townhomes, the applicant has introduced a design featuring predominantly brick fagades with varied colors to enhance visual interest. Located at the corner of Villa Vista and Richmond, the project includes a required public plaza and chamfered corner treatment, which has been addressed in the building elevations. Notably, corner units in Buildings 1 and 2 incorporate brick elements to meet overlay Millcreek City Council Meeting Minutes 11 August 2025 Page 3 of 9 requirements for residential design standards. The townhomes range up to four stories with a maximum height of approximately 46 feet, triggering the need for an additional conditional use permit due to the building height. The need for a development agreement arises because the current code lacks specific guidance for townhome-style developments in this area. Existing requirements, such as 50% ground-floor window glazing and upper-level step-backs, are not easily compatible with row house designs. As the project moves forward through review by the community council, Planning Commission, and City Council, key considerations will include how to appropriately adapt or waive certain architectural standards, such as step-backs and glazing, to better suit the unique characteristics of this townhome product while still achieving the intent of the City Center Overlay. Lilly said from staff's perspective, this project supports broader goals of diversifying the housing mix within Millcreek's City Center. A successful city center cannot consist solely of renter-occupied multifamily units or exclusively townhomes; rather, it should reflect a balanced variety of housing types, as outlined in the City Center Master Plan. Notably, this site was previously entitled for a 75-unit, 72-foot-tall multifamily building. In contrast, the proposed townhome development offers a different residential form that contributes to architectural variety and visual interest, particularly along the Villa Vista streetscape. While certain design deviations such as reduced step-backs will need to be addressed through a development agreement, staff does not object to such an agreement in this case, as the project aligns with General Plan goals and introduces a distinctive, ownership- oriented housing option within the evolving city center. Mike Winder said "townhome" and "rowhome" terms can be used interchangeably. Alfandre said the homes would not be starter or luxury homes. Council Member DeSirant expressed concern about owner occupancy. Alfandre said the units would be designed for owner occupancy. John Brems asked if the developer had any objections to a deed restriction. Alfandre said the only deed restrictions he knew of came with a public benefit. Council Member Jackson asked about a plaza. Estudillo highlighted where one would be. Commissioner Larsen recommended an English basement to allow for an internal accessory dwelling unit. Alfandre said that had not been considered. Council Member Jackson asked about live/work units. Alfandre said there would be four. Commissioner Soule asked about the neighborhood meeting input. Alfandre said a lot of comments were about the irrigation ditch, and the developers are working with the ditch master. Commissioner Reid asked about balconies or stepbacks to break up the building. Alfandre said there were architectural variations done to the fagade. Commissioner Vance asked about the stepbacks of the previously approved project for the site. Lilly said those stepbacks were 20 feet. b. Millcreek Common East (Hotel, Condominium, Retail, Shared Parking) Lilly said Millcreek Common East refers to the area currently occupied by a parking lot and the SLC gym. As part of a proposed redevelopment, the project team is exploring ways Millcreek City Council Meeting Minutes 11 August 2025 Page 4 of 9 to reconfigure property ownership and incorporate existing tenants like the Fine Art Inn into the new space. The deveIopment aligns with the City Center Master PIan, which emphasizes walkability, reduced internal traffic, and public access to parking. A key component is a 221-stall publicly accessible parking structure, designed based on a shared parking analysis estimating 180 needed stalls, with additional capacity for overflow parking. Due to the structure's footprint and design constraints, development around it, particularly along Highland Drive, will require careful plaru'iing to maintain flexibility in use and massing. The Master Plan also encourages mixed uses, highlighting hotels as important to Utah's tourism economy and advocating for cultural elements like museums and art galleries. The proposed project includes owner-occupied condominiums, a hotel, and retail space, all of which support these goals. Key development agreement items include modifying building step-backs and setbacks along Millcreek Common and formalizing the shared parking arrangement. In exchange for these adjustments, the developer in partnership between the city, a hotel operator, and a condominium developer will deliver enhanced parking, upgraded materials, improved building design, a plaza on Millcreek Common and Chambers Avenue, and a prominent blade sign serving as an entry monument to the area. Winder said the proposed development at Millcreek Comtnon East involves a phased plan coordinated with the completion of a shared parking structure, expected by June 2026. Until then, temporary parking lots to the north and east are in use, with the eastern lot slated for development starting July 1, 2026. The first phase includes relocating Fine Art Iru'i Art Gallery, a longstanding local business, to a temporary space near the old city hall by the end of 2025. In early 2026, the adjacent SLC Strength & Conditioning gym-owned by Hamid Adib-will be renovated as part of a contribution to the broader project. This will enable construction of three key components starting mid-2026: a Hyatt Studios hotel on the corner, a centrally located public parking garage, and a condominium and retail building along the common. Outbuildings behind the site will be removed to allow surface parking for SLC Strength, and once complete-anticipated in surnrner 2028-Fine Art Inn will return as a permanent tenant in the new retail condominium space. The city will retain ownership of the remaining retail and restaurant spaces to ensure curated, vibrant street- level activity aligned with the Millcreek Common vision. The streetscape will also be improved by eliminating an existing traffic island at Chambers Avenue and Highland Drive, creating a larger, more functional corner plaza. The design includes public loading zones for hotel use, access to both public parking and a separate underground garage for condo residents, mirroring the design approach used for police and city vehicles on the opposite side of Chambers at city hall. Due to tight site constraints, angled parking along the eastern woonerf of the Common will be removed but replaced by structured parking. Additional design modifications, such as reduced building overhangs and relocating a transformer, will allow for a more visually striking corner entry and greater pedestrian comfort. The development will feature sidewalk seating, activated ground-floor retail, and restaurant space-carefully selected to contribute to a lively, community-focused environment, rather than conventional office uses. Winder then explained and described the proposed site while showing the proposed plans and a video of the rendered building elevation.  Millcreek City Council Meeting Minutes 11 August 2025 Page 5 of 9 Commissioner Vance asked about the height of the building. Lilly said it would be 74 feet taIl on the west side and 62 feet on Highland Drive. Jory Walker, Principal Architect for Beecher Walker Architects, said this project presents a complex design challenge due to the integration of multiple building types, each with differing requirements, within a single site. The development includes a hotel with 10-foot floor-to-floor heights, a condominium component requiring 12-foot floors, and a shared parking structure, all of which demand separate entrances and circulation systems. Coordinating these elements has required extensive planning, including the design of multiple stair towers and unique circulation paths to ensure proper exiting and functionality. Further complicating the project is the site's 12-foot elevation change, which affects building levels and access points. For example, the condo plaza is positioned approximately six feet higher than the hotel plaza, providing a natural separation and elevated views for condo residents. The hotel itself will be Hyatt Studios, a brand with specific design standards that limit architectural customization to maintain brand consistency, While some minor modifications are possible, the overall look must align with Hyatt's identity. After months of careful coordination and problem-solving, the project is finally taking shape and is expected to be an exciting, well-integrated development. Commissioner LaMar recommended maintaining the north and south turns onto Highland Drive from Millcreek Common. He also suggested a sign on the road median. Commissioner Soule asked about a traffic signal onto Highland Drive. Council Member Uipi acknowledged the excess of traffic and difficulty turning onto Highland Drive. Winder noted when Chambers Avenue went through to Richrnond, the traffic would open up, but a light could not go in due proximity to other signals on Highland Drive. Lilly said a traffic study with Fehr and Peers was conducted but it did not recommend anything other than a dedicated left and right turn onto Highland Drive, but the consultant would be reevaluating traffic impacts based on this use. Winder requested the council's and cornrnission's input on the project via email. 2. Staff Reports There were no reports. 3. Discussion of Agenda Items, Correspondence, and/or Future Agenda Items There was none. Council Member Jackson moved to adjourn the work meeting at 7:02 p.m. Council Member DeSirant seconded. Mayor Pro Temp Uipi called for the vote. Council Member Catten voted yes, Council Member DeSirant voted yes, Council Member Jackson voted yes, and Council Member Uipi voted yes. The motion passed unanimously. REGULAR MEETING - 7:00 p.m. TIME COMMENCED: 7:10 p.m. 1. Welcome, Introduction and Preliminary Matters Millcreek City Council Meeting Minutes 11 August 2025 Page 6 of 9 1.1 Pledge of Allegiance Mayor Pro Tempore Uipi called the meeting to order and led the pledge of allegiance. 1.2 South Salt Lake Valley Mosquito Abatement District Tax Increase Presentation; Silvia Catten, Chair Silvia Catten, Chair of the South Salt Lake Valley Mosquito Abatement District, said the district is proposing a property tax increase in 2026 to address growing operational needs and ensure long-term financial sustainability. The district currently generates $1.2 million in property tax revenue and aims to raise an additional $320,000, bringing the total to $1.5 million. This would be the first effective rate increase since 2002-the 2012 adjustment only reversed a previous temporary hike used to fund new facilities. Despite managing operations efficiently for over two decades, the district is now facing increased service demands due to significant population growth-over 200,000 new residents and 72,000 homes-across its service area, which includes most of Salt Lake Valley (excluding Salt Lake City, Magna, and the Great Salt Lake). The additional funding will support several priorities: maintaining current service levels, expanding public education and outreach, reinstating the Black Flag program in semi- rural areas like West Jordan and Riverton, and investing in operational enhancements. These enhancements include scaling up drone-based surveillance and treatment technologies-an increasingly critical and efficient tool for mosquito control-as well as implementing environrnentally conscious control methods. Capital funds will also be used to upgrade fleet vehicles, expand lab capabilities, and prepare for future projects. The district recently established a small in-house lab and hopes to grow its data capabilities to improve treatment precision. The financial impact on taxpayers is modest: for a typical residence, the increase would be about $0.99 annually, while businesses valued at $1.5 million would see a $4.50 annual increase. The district is cornrnitted to transparency through the Truth in Taxation process and aims to ensure the public understands both the need and the benefits of this proposed adjustment. Mayor Pro Tempore asked about the Black Fly Program and if the proposed increase would only be for Millcreek. Catten said mosquito abatement in the South Salt Lake Valley is funded through a dedicated line item on property tax bills, with each property owner contributing based on the assessed value of their home or business. This ensures that all residents and property owners within the district share the cost proportionally. The proposed tax increase will apply uniformly across the district, with higher-value properties contributing more. One of the initiatives the district aims to reinstate with this funding is the Black Fly Program. Although black flies are not mosquitoes and typically do not bite or bother humans directly, they can pose ecological nuisances, particularly in areas with farms and open space. These insects often breed in tree holes and other small water-collecting cavities. Historically, the mosquito district controlled black flies alongside mosquitoes due to the overlap in treatment methods. However, the program was discontinued during the COVID-19 pandemic due to financial constraints and a need to focus resources solely on mosquito control. Now, the district plans to reintegrate the Black Fly Program with minimal additional cost, as it was once part of regular operations. A public hearing on the proposed tax increase is scheduled for December 8 at the district's West Jordan offices. Millcreek City Council Meeting Minutes 11 August 2025 Page 7 of 9 Council Member Jackson asked how the public would be noticed of the public hearing. Catten was unsure aside from the Truth in Taxation process. 1.3 Public Comment Laura Renshaw, Millcreek Library Manager, said the library door count was over 18,000 in the month of June and about 4,000 people participated in the summer reading program. She then highlighted some available online resources, such as the news. 2. 2. Financial Matters 2.1 Public Hearing to Consider a Monetary Contribution of Up to $110,000 to the Asian Association of Utah Kayla Mayers said recently the 21st Century Community Learning Centers funding had been reinstated, which impacts programming in South Salt Lake, as they rely heavily on this funding. However, despite its return, South Salt Lake will not be able to support afterschool programming during the upcoming transition year due to broader budget cuts. While they will contribute some funding to pay teachers, additional financial support is still necessary, particularly because two new programs have been added to the Asian Association's portfolio in Millcreek this year. Many schools in Millcreek do not qualify for 21st Century funding, which is limited to schools with a high percentage of students receiving free or reduced lunch. Because of this, the Asian Association has not previously applied for the grant for Millcreek schools. Additionally, South Salt Lake had been slated to hold the grant for Moss Elementary this year, further limiting application opportunities. Looking ahead, if 21st Century funding remains available, Moss-being the only qualifying school-could potentially be the focus of a new application by the Asian Association next year. Council Member Jackson moved to open the public hearing. Council Member DeSirant seconded. Mayor Pro Temp Uipi called for the vote. Council Member Catten voted yes, Council Member DeSirant voted yes, Council Member Jackson voted yes, and Council Member Uipi voted yes. The motion passed unanimously. There were no coinrnents. Council Member Jackson moved to close the public hearing. Council Member DeSirant seconded. Mayor Pro Temp Uipi called for the vote. Council Member Catten voted yes, Coiuicil Member DeSirant voted yes, Council Member Jackson voted yes, and Council Member Uipi voted yes. The motion passed unanimously. 2.2 Discussion and Consideration of Ordinance 25-31, Approving a Monetary Contribution of Up to $110,000 to the Asian Association of Utah Council Member Jackson moved to adopt Ordinance 25-31, Approving a Monetary Contribution of Up to $110,000 to the Asian Association of Utah. Council Member Catten seconded. The Recorder called for the vote. Council Member Catten voted yes, Council Member DeSirant voted yes, Council Member Jackson voted yes, and Council Member Uipi voted yes. The motion passed unanimously Millcreek City Council Meeting Minutes 11 August 2025 Page 8 of 9 3. Business Matters 3.I Public Hearing to Consider a Nonmonetary Contribution of Up to $300 to Salt Lake County Animal Control Services Rita Lund said she represents Millcreek on the Animal Services Advisory Board. Animal Services is having an annual fundraiser and has asked all of the member cities to donate a basket to auction off. Council Member DeSirant moved to open the public hearing. Council Member Jackson seconded. Mayor Pro Temp Uipi called for the vote. Council Member Catten voted yes, Council Member DeSirant voted yes, Council Member Jackson voted yes, and Council Member Uipi voted yes. The motion passed unanimously There were no comments. Council Member DeSirant moved to close the public hearing. Council Member Catten seconded. Mayor Pro Temp Uipi called for the vote. Council Member Catten voted yes, Council Member DeSirant voted yes, Council Member Jackson voted yes, and Council Member Uipi voted yes. The motion passed unanimously 3.2 Discussion and Consideration of Ordinance 25-32, Approving a Nonmonetary Contribution to Salt Lake County Animal Control Services Council Member Jackson moved to adopt Ordinance 25-32, Approving a Nonmonetary Contribution to Salt Lake County Animal Control Services in the amount up to $300. Council Member DeSirant seconded. The Recorder called for the vote. Council Member Catten voted yes, Council Member DeSirant voted yes, Council Member Jackson voted yes, and Council Member Uipi voted yes. The motion passed unanimously 4. Reports 4.1 Mayor's Report Mayor Pro Temp Uipi reported on successful city events. She announced candidate filing for Districts 2 and 4 starting the following day. 4.2 City Council Member Reports Council Member Jackson reported she attended the UFA promotion ceremony. There was also a promotion ceremony held at city hall for UPD that day. Council Member DeSirant praised the Millcreek farmers market and felt parking locations should be advertised better. Council Member Jackson asked if a crosswalk study could be a possibility on Highland Drive. Winder said the City Engineer said having no crosswalks there is safer because jaywalkers watch for cars wile they cross. 4.3 Staff Reports Mike Winder reported on the successful first weekend of Camp Tracy. The city received AAA and AA+ bond ratings for the Millcreek Common East project. 5. New Items for Subsequent Consideration There was none. Millcreek City Council Meeting Minutes 11 August 2025 Page 9 of 9 6. Calendar of Upcoming Meetings * Historic Preservation Commission Mtg., 8/14/25 6:00 p.m. * Planning Commission Mtg., 8/20/25, 5:00 p.m. * City Council Mtg. 8/25/25 7:00 p.m. Mayor Pro Temp Uipi thanked city staff present at the meeting for the work they do. ADJOURNED: Council Member DeSirant moved to adjourn the meeting at 7:43 p.m. Council Member Jackson seconded. Mayor Pro Temp Uipi called for the vote. Council Member Catten voted yes, Council Member DeSirant voted yes, Council Member Jackson Attest: Elyse'/n, City Recorder