City Council Workshop
Regular MeetingOakdale, MN · January 10, 2023
Minutes
WORKSHOP MINUTES
OAKDALE CITY COUNCIL
January 10, 2023
The City Council held a workshop on Tuesday, January 10, 2023 at Oakdale City Hall, 1584 Hadley
Avenue North, Oakdale, Minnesota. The meeting began at 5:00 PM.
Present: Mayor Kevin Zabel
Council Members: Jake Ingebrigtson
Andy Morcomb
Susan Olson
City Staff Members: Christina Volkers, City Administrator
Sara Ludwig, City Clerk
Brian Bachmeier, Interim City Engineer
Andrew Gitzlaff, Community Development Director
Melanie Lee, Human Resource Director
Nick Newton, Police Chief
Lori Pulkrabek, Communications Manager
Jim Romanik, Public Works Manager
Kevin Wold, Fire Chief
Jason Zimmerman, Finance Director
Other: Carrie Frost, EDC Candidate
Stan Karwoski, Washington County Commissioner
Mandy Leonard, Washington County Public Works Project Manager
Lyssa Leitner, Washington County Public Works Planning Director
John Stark, Enduring Cities, LLC Consultant
NEW MAYOR HOUSEKEEPING ITEMS
Mayor Zabel began by welcoming any thoughts from the group about suggested minor tweaks to
the current meeting format or other “housekeeping” items communicated in a written
correspondence to the Council Members prior to the meeting.
Council Member Ingebrigtson would like to keep things conversational and said there is no need to
acknowledge each comment. He stated although the intent of the suggested changes is good, it
could possibly cause more friction.
Mayor Zabel explained that the intent is to follow City Code which follows Robert's Rules of Order
which requires recognizing speakers. He assured the group that anybody who wants to speak on a
topic will have the opportunity. His expectation is that things will remain conversational and casual
and natural conversations will occur during discussions. Mayor Zabel emphasized that adjustments
can be made along the way.
In response to Council Member Ingebrigtson’s question about Mayor Zabel’s willingness to change
City Code due to meeting conversations not flowing well, Mayor Zabel replied he is does not support
a change to City Code away from Robert’s Rules of Order as almost every city in Minnesota uses
them as well.
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PAGE TWO
City Administrator Chris Volkers stated that Robert’s Rules of Order are formally for the Council
meetings, but are intended to be applied to all meetings of the Council, however, there is a little bit
of discretion. She suggested that Council see how this new format goes.
Mayor Zabel added whether the Council uses Robert's Rules of Order or Mason's Manual of
Legislative Procedure, it is going to be the same procedure. He would like to try out the new format
to see how the Council feels about it.
Council Member Morcomb was supportive of using Robert's Rules of Order especially for
contentious topics.
Council Member Olson was in agreeance with Council Member Ingebrigtson. She is supportive of a
free-flowing conversation. She brought forth a concern about forgetting a comment due to having
to wait until the next opportunity to speak.
Mayor Zabel stated that this topic is a challenge with any governing body. He added, aside from
contentious issues, the new format should not pose a problem with free-flowing conversation.
Council Member Olson clarified that Mayor Zabel’s intent is to have the Council Members be
respectful and wait for each other to finish.
Mayor Zabel confirmed that is his intent, adding that he is trying to be cognizant to not cut others
off.
Mayor Zabel moved on to touch on the fact that communication is key. He stated there has been
good progress made with this in the last few years due to staff making sure the Council is getting
good information. He invited Council to talk to him or Ms. Volkers if any mistakes occur.
Council Member Olson noted that Mayor Zabel is receptive to both negative and positive feedback.
TANNER’S LAKE PROPERTY REDEVELOPMENT UPDATE
Community Development Director Andy Gitzlaff began the discussion by providing background of
the parcels that make up the Tanners Lake property. There were two separate restaurants on each
of these parcels – Blackie’s Eatery and Toby’s on the Lake. The City of Oakdale Economic
Development Authority (EDA) received special legislative approval to form a Tax Increment
Financing (TIF) district in 2008. The City EDA then purchased the former Blackie’s Eatery restaurant
site on the north side and demolished the building in 2008. In 2014, the City EDA purchased the
parcel to the south (former site of Toby’s on the Lake).
Mr. Gitzlaff shared two areas of guidance for pursuing development of this site. The first being that
Tanners Lake was identified as a future redevelopment site in the adopted Oakdale 2040
Comprehensive Plan. The second being the inclusion of the site for the potential expenditure of TIF
surplus funds in the TIF Spending Plan for districts 1-4 and 1-6.
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PAGE THREE
Some of the past proposals identified by Mr. Gitzlaff include a variety of uses such as multifamily
affordable and market-rate housing, mixed-use, boat launch/dock, medical office, restaurant, and
a hotel.
As of fall 2022, staff have revived efforts to market the site for redevelopment which included
creating and posting a marketing flyer on the City and County websites, listing the property on
Minnesota Commercial Association of Real Estate/Realtors (MNCAR), attending and promoting the
property at the MNCAR Fall Expo, and hiring an Enduring Cities, LLC consultant to assist in marketing
the site and engaging with developers.
Mr. Gitzlaff turned the presentation over to John Stark, Enduring Cities LLC Consultant to go over
the redevelopment process.
Mr. Stark shared his experience which includes 60 redevelopment projects over a 30-year span. In
his experience, the most successful redevelopment projects were the result of a good City-developer
relationship that include such things as mutually understood expectations, understanding the
incremental nature of the process, all parties providing as much transparency as possible, and
improving the concept plan by giving and receiving open and honest feedback. He added that the
relationship grows from eliminating unknowns and increasing commitment.
Next, he noted the stages of the redevelopment process which are exploration, concept plan,
exclusive rights, redevelopment contract, land use approvals and financing approvals, and
groundbreaking. The City is currently in the exploration stage and is searching for proposals after
restarting the developer outreach process and hiring an experienced redevelopment professional
consultant.
Mr. Stark reached out to a dozen developers and had an in-depth meeting with half of them. Most
of the developers were aware of the site and a few of them had made proposals in the past. He
noted that there are three developers interested in making a preliminary proposal with multifamily
likely being the primary use. He explained that once concept plans are presented, the developer
that best meets staff’s proposed criteria would be seen as the frontrunner. At this point, the two
parties would enter into an exclusive rights agreement which means the City ceases marketing the
site and does not engage with other developers, meanwhile the developer agrees to reimburse the
City for costs incurred for financial and engineering analysis. At the end of this 60-90 day exclusive
rights period, one of three decisions is made. The developer concludes that the plan is not feasible,
the developer is comfortable moving forward as is, or the developer identifies obstacles that
typically can be overcome by working with the City.
The next part of the discussion focused on developer feedback and concerns. Mr. Stark received
the following feedback from the developers. The lake is the number one asset of the site, the
developer would be a pioneer of the surrounding area, and the location near 3M Global
Headquarters, Gold Line BRT, and regional destinations increase its attractiveness.
On the contrary, Mr. Stark received the following concerns from the developers. The Department of
Natural Resources (DNR) lakeshore setback, a sewer line bisecting the site, the privately-owned lot
segmenting the site, and the water table depth impacting the structured parking.
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In response to Council Member Ingebrigtson’s question about the willingness of the owners to sell
the private lot, Mr. Gitzlaff said they have been willing to sell in the past for a significant cost. A
recent attempt to contact the owner by mail received no response.
In response to Council Member Ingebrigtson’s question about an unforeseen problem if the owners
of the private lot will not sell, Mr. Stark said there could still be an adequate development project
without that lot, however to have a great development project then that piece of the site would be
needed.
Mr. Stark continued with concerns from the developers regarding the process. Several developers
had a bad experience in the past, prior to current City leadership. Some developers are concerned
there will be a desire from the City to “dictate” the use regardless of market reality. The current
state of the economy – materials costs, supply chain delays, and increased interest rates – were
also concerns shared by the developers.
He shared his opinion that public financing will likely be needed because urban land prices are
much greater than “greenfield” sites. Additionally, redevelopment sites have costs such as
structured parking, relocating utilities, bad soils, etc. that “greenfield” sites do not. Fortunately,
Oakdale has excellent public finance advisors in Mikaela Huot and the rest of the Baker-Tilly staff.
They can assist developers to determine if their return is greater than other types of investments.
Mr. Gitzlaff presented the proposed criteria that staff will use to evaluate proposals. Staff will look
at the financial capacity of the developer, other projects completed by the developer that are similar
in scope and scale, level of financial assistance requested and ability to maximize public benefit,
ability to maximize the site(s)’ potential and inclusion of public amenities, and the timeline for
completion.
Moving on, Mr. Gitzlaff outlined the next steps in the process. Upon completion of proposal
evaluations, staff will make a recommendation to Council on a preferred developer to move forward
with. The preferred developer would present their proposal at a Council Workshop. Upon City Council
affirmation of the preferred developer, the City would enter into an exclusive rights agreement. A
full financial analysis would be conducted prior to a redevelopment contract.
Council Member Olson voiced concern about the amount of multifamily housing already being
developed in the City. She asked if the interested developers know about all the other development
occurring in the City. Mr. Gitzlaff said the developer would perform a market study which would have
that information. He added there is still a housing supply shortage in the Metro area especially
multifamily options.
Council Member Ingebrigtson asked if the City could legally finance the sale of the property itself as
a contract for deed with attractive terms to help negate the high interest rates. Mr. Stark indicated
in his experience this is a legal option.
Mayor Zabel asked the group if there are any uses for this site that are off the table.
Council Member Morcomb was supportive of considering any development opportunity that is
presented. Council Member Ingebrigtson was in agreement.
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PAGE FIVE
Council Member Morcomb asked if the three proposals already received include the use of all three
lots. Mr. Stark indicated that would be the preference of developers bringing forth proposals.
Mayor Zabel recalled that in his past experience the owner of the private lot would be more willing
to consider selling once a development agreement is reached, for a price.
Council Member Ingebrigtson noted the biggest concern about the property from a development
perspective is the privately-owned parcel.
Mayor Zabel asked the group if they are comfortable with the proposal evaluation criteria proposed
by staff.
Council Member Olson shared her preference against a multifamily development on the site,
however she would be open to any proposals that come to Council for discussion.
Council Member Morcomb was in favor of moving forward as outlined by staff.
CENTURY AVE COALITION
Lyssa Leitner, Washington County Public Works Planning Director began by stating this initiative has
been led by Washington County Commissioner Stan Karwoski. She continued that Century Avenue
is a long stretch that has a lot of needs and a lot of city partners. MnDOT currently has jurisdiction
over the vast majority of this road as it is on the border of Ramsey and Washington Counties. There
are a lot of high priority areas such as Century Ave & Hwy 36. Commissioner Karwoski, along with
Ramsey County Commissioners, wanted to pull together a coalition to help bring partners together
to advocate for the whole range of needs along this corridor.
Ms. Leitner went through the first slide covering current and near-term projects. With MnDOT having
jurisdiction over the vast majority of this road, they are leading a planning study right now that will
help identify needs and priorities. One of the aspects of the study is the turnback which refers to
returning jurisdiction of this road back to the County. Ms. Leitner indicated Century Avenue is on the
turnback list with parts on the north and south having been turned back to the counties already.
The majority (about 6 miles in the middle) is still within MnDOT jurisdiction. Ms. Leitner continued
stating the County will not take over without an understanding of the financial liabilities. She added
that Oakdale staff is involved in the MnDOT planning study (Planning and Environmental Linkages
PEL Study).
The second slide presented by Ms. Leitner addressed other current and near-term projects including
the Metro Gold Line which crosses over Century Avenue at the very south end. There are multiple
grants both County staff and MnDOT staff are looking at including Corridors of Commerce which
was submitted for Highway 36 & Century Avenue.
Ms. Leitner added, if awarded, MnDOT will lead and find the additional funding for that project. The
County was successful in receiving $7 million dollars in federal region funding for reconstruction of
the segment north of I-694.
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Ms. Leitner noted that development and redevelopment along the entire six miles of the corridor is
a huge component of the needs of this project.
She moved on to talk about the challenges of the coalition which include MnDOT having jurisdiction,
but the counties and cities having a greater focus. To add to this, there are no Century Avenue
improvement plans programmed in MnDOT plans. Additionally, the only project programmed in
Washington County is the project north of I-694.
Ms. Leitner continued with the opportunities of the coalition which include a variety of funding
mechanisms, significant interest from all the jurisdictions at the state, county, and city level, and a
coordination of overlapping projects.
With two counties and nine cities coming together to be an effective body, Ms. Leitner indicated
there is a need to be unified, organized, strategic, and speaking with one voice.
She reviewed the proposal of the Century Ave Coalition which include counties as the staff leads
and the cities providing in-kind support with project prioritization, funding requests, and reoccurring
meetings. The County is not proposing a formal coalition at this time; presently, there will be no
formal bylaws, agreements, or financial commitments. The request is to have the Mayor or a Council
Member from each city as a coalition member plus an alternate, and assigned city staff for
communication purposes.
The next steps provided by Ms. Leitner include additional meetings with City Councils through
January, a kickoff for the coalition in early 2023 which will be coordinated with the current MnDOT
study, and engagement with the 2023 legislative session as necessary.
Commissioner Karwoski added that during his time on Oakdale's Council, he wrote a letter in
conjunction with North Saint Paul and Maplewood asking the state to prioritize the Highway 36 &
Century Avenue Interchange.
Commissioner Karwoski shared the following information. Century Avenue would become a county
road and typically the counties do not tax the property owners; the goal of this coalition is to be
proactive; the few hundred million dollar turnback will be done in pieces; the County would lean on
Oakdale's ears to be a leader on the input; the coalition allows the interested cities and counties to
have one voice, but the bigger cities would be the driving force. He suggested that each city could
do a comprehensive plan to have a coordinated effort of redevelopment.
Mayor Zabel stated that the group agrees this has been a very complicated stretch for a long time.
He sees the value in a coalition because of the effectiveness of the Gold Line Coalition. He voiced
a concern about the proposed structure. Mayor Zabel’s preference would be to have an elected
official and a staff member representing the City the entire time. He explained that Oakdale
properties along this stretch are diverse.
From a public relations perspective, it is going to be a delicate balance with the City’s residents. His
preference for staff involvement would be especially for things like financing, the environment, and
public works.
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Commissioner Karwoski stated that the plan was to have a consistent City staff member attend
along with an elected official.
Mayor Zabel would prefer that City staff have an equal voice as the elected officials because of the
operational expertise that is needed.
Commissioner Karwoski replied that the County is meeting with other cities, but that does not seem
like an obstacle that cannot be overcome.
Council Member Ingebrigtson asked about Oakdale’s financial obligations.
Commissioner Karwoski explained that right now Century Avenue and Highway 36 are state roads
which would be logical to turnback to the County. There could be financial aspects due to a city's
choice such as adding a sidewalk that connects to the road, however it would be a county road in
which the county would maintain the right of way and everything within it.
Ms. Leitner clarified that the actual turnback would not have City cost. She added that if the County
owns the road and there is a design project, the County would abide by the cost-share policy
currently in place with the City. The variety of infrastructure projects is always done jointly.
Council Member Ingebrigtson asked if the City does not have the money for their share could they
veto the project.
Mayor Zabel offered that the point the County is making is that these would be somewhat optional-
type projects.
Ms. Volkers clarified if there are projects along the corridor, there are cost-share agreements
already in place and the City would have to pay their share separate from anything the City would
want to add like a trail or a bus stop, etc.
Ms. Leitner verified Ms. Volkers’ statement. She added there are quarterly staff meetings with City
staff that talk about all the upcoming CIP projects. There also was a public engagement for that with
the intent that there will not be any surprises. The City would see the project and funding in the CIP
five years out. The County can talk to staff about pushing projects out based on funding ability. She
added that scope changes do happen on a project-by-project basis.
Council Member Ingebrigtson shared his concern that even with a five-year plan, a five million dollar
project could hurt the City financially, for example.
Commissioner Karwoski asked the group to look at it as an investment, i.e. there is a 200 million
dollar investment in a road with a lot of redevelopment benefits, and the City is asked to fund $5
million of it. He added that there will be time to go through the development and address these
hurdles when they become closer to reality.
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PAGE EIGHT
Council Member Morcomb was comfortable with joining the coalition as the City will have authority
to review and decide what it would like to do with these projects. He requested to see the current
cost-sharing to have an understanding upfront. He added without four-to-five years of heads up it
would be difficult to participate in this type of cost-sharing.
Ms. Leitner said the County will pass the information along to Interim City Engineer Brian Bachmeier
as he is the City staff member on the current MnDOT project.
Council Member Ingebrigtson asked to see current cost-sharing agreement with the County.
Ms. Volkers stated she will get the cost-sharing agreement to Council. Although Mr. Bachmeier is
the contact, going forward there needs to be another way to get this information to Council.
EDC VACANCY INTERVIEW – CARRIE FROST
Mayor Zabel thanked and welcomed EDC Candidate Carrie Frost and explained the interview
process.
The Council Members and Ms. Volkers introduced themselves.
Ms. Frost provided a brief introduction including her place of business, CCF Bank which does
commercial lending, residency, and involvement in the Oakdale Area Chamber of Commerce.
Council Member Morcomb asked about the residency rules of the commission.
Mayor Zabel explained that the Economic Development Commission (EDC) has been given past
Council exceptions to those that work for Oakdale businesses.
Council Member Morcomb asked Ms. Frost if she lends to a lot of developers in her line of work.
Ms. Frost indicated some lending to developers is done, however it is not a large amount. Being a
community bank, the lending limit is $27 million, but the more realistic amount is $10 million or
less. Due to these numbers, lending to developers is limited.
Council Member Morcomb asked Ms. Frost if there could be a conflict of interest being on the
commission and also being a lender to developers in the City.
Ms. Frost did not see any potential conflict of interest.
Council Member Olson asked Ms. Frost about the goals she would like to accomplish while serving
on the commission.
Ms. Frost would like to know more of what is going on in Oakdale. She added that she will be able
to learn things to bring back to her business when doing commercial loans.
Mayor Zabel stated Ms. Frost would be a wonderful addition to the EDC. He said it is a great group
of local business owners and people interested in the development climate in the community.
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JANUARY 10, 2023
PAGE NINE
He told Ms. Frost that Council will discuss the interview and staff will be in contact about the
decision. He added that it will be on the next Council agenda for action.
DISCUSSION RE: EDC APPLICANT
Council was in agreement to move forward with appointing Ms. Frost to the EDC.
Ms. Volkers stated that she and Mr. Gitzlaff had met with Ms. Frost and her boss at an earlier date
because they want their bank to get more involved in Oakdale.
PROPOSE A FEE FOR UTILITY TASK VEHICLE ANNUAL PERMITS
Ms. Volkers began by stating that during the utility task vehicle permit demonstration year there
were a handful of permits granted. She said there were no complaints during that time. At the
December 13, 2022 Workshop meeting, Council indicated the City should continue this permit. She
told Council that the cost of the permit, time, taxes and delivery is not all that much, and that staff
is recommending $25 for the fee. She explained that Council can choose to not impose a fee, but
having a set fee is in line with all other permits. Ms. Volkers said if there are any problems with the
fee staff will return to Council to discuss.
Council Member Morcomb was supportive of the suggested fee.
Council Member Ingebrigtson did not have a problem with the suggested fee.
Mayor Zabel was glad there were no issues during the demonstration period as this permit was a
response to a resident request. He would like to make it part of the communication schedule so
residents know that this permit is available.
Council Member Olson was supportive of the suggested fee.
Ms. Volkers added that oftentimes there is discussion about charging for the service because
property taxpayers are paying staff salaries. She reminded the group that Council has said if there
is extra work involved to administer the permit then the City as a whole should not have to pay for
it as a result of one resident’s request.
Mayor Zabel indicated there is a state law that says the City can only charge up to the cost of
administering the service. Typically, staff will look at how many hours are involved.
Ms. Volkers said the fee will be added after the next round of fee schedule adjustments coming to
Workshop soon. There will be one agenda item for Council when all fee schedule adjustments have
been discussed and agreed upon.
CARDINAL MEADOWS MONUMENT AND LANDSCAPE MEDIAN AT 15TH STREET NORTH AND HYDRAM
AVENUE NORTH
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JANUARY 10, 2023
PAGE TEN
Interim City Engineer Brian Bachmeier started the discussion by adding that two more resident
surveys were received in the last week – one in favor of removing the monument and one in favor
of keeping it.
In response to Council Member Olson’s question about the need for a left turn lane onto 15th Street
North, Mr. Bachmeier said the traffic volume is not at a level where it is needed.
Mr. Bachmeier shared concerns from staff about the snow plowing challenges due to the narrow
spaces and landscaped median. The irrigation system within the median has not been operational
for years. He added that there is an opportunity to remove the monument with this street
improvement project which would make things easier for City operations.
In response to Mayor Zabel’s question about the City enforcing a parking restriction ordinance near
the monument within a certain number of feet of 15th Street North, Mr. Bachmeier stated there is
currently no parking restriction and the City does not typically enforce them in residential
neighborhoods. He added that a few years back, the City was monitoring the parking situation and
could not recall any major problems.
Council Member Ingebrigtson was in favor of removing the monument due to the excessive traffic
during Eagle Point Elementary School pickup and drop-off times. He added that it is possible Hydram
Avenue will be used at some point in the future if changes are not made to the current situation.
Mayor Zabel was in agreement and suggested this point of discussion should be added to the
current conversation with the residents in the neighborhood. If the monument is removed then the
school's traffic pattern is going to be reevaluated.
Council Member Ingebrigtson asked if the City could legally stop school buses from using Hydram
Avenue. Mayor Zabel said the City could put weight restrictions on that road.
Council Member Olson asked if there was an increased cost to the developer and an increase in
sale price of the lots due to adding the monument originally, Mr. Bachmeier said he does not know
that, but that it was not a condition from the City to put in the monument. Council Member Olson
added that from a snow plowing perspective it is costly to have to maneuver around obstacles.
Regarding the removal of the monument, Council Member Olson would like more information before
making a decision. She suggested presenting the residents with more options and more
information.
Mayor Zabel would like to inform residents of the effects of their decision when either answering
‘yes’ or ‘no’. He suggested Council go door-to-door to hand out more information.
Council Member Morcomb was in agreement with Council Member Olson about providing residents
with more information. With the majority of the residents not wanting the monument removed, he
was not inclined to take it out without fully explaining the implications.
Mr. Bachmeier clarified that the school district would have to come to the City Council to change
their circulation pattern and access points.
WORKSHOP MINUTES
JANUARY 10, 2023
PAGE ELEVEN
Police Chief Nick Newton shared that the Police Department has not had any complaints on this
issue.
In response to Council Member Olson's question about the extra amount of time it takes to clear
the snow due to the monument, Public Works Manager Jim Romanik said it takes approximately an
additional five minutes each time the plow has to clean that area.
Mayor Zabel stated that the current situation does not warrant removal of the monument. The
Council should take that extra step to make sure residents fully understand what their decision
means. He referenced complaints he has received about traffic on 15th Street during the busy
school times.
Ms. Volkers asked Mr. Bachmeier to create additional information for residents that would explain
anticipated ‘yes’ or ‘no’ scenarios, and asked that residents are given a couple of weeks to provide
additional feedback.
Mayor Zabel reminded the group that the plan approval will come back for a decision at the March
28, 2023 Council meeting. He noted there is a clear level of passion for and against this decision
and Council should be mindful of that when making a decision.
Ms. Volkers suggested adding language such as, "based on the comments and questions", on the
additional information so residents know they are being heard.
COUNCIL TOPICS
Council Member Olson asked if it is possible to make the City website readable in other languages,
possibly Hmong or Spanish. She added having this feature may increase resident participation.
Communications Manager Lori Pulkrabek has been researching accessibility tools and will bring
them to Ms. Volkers for discussion. She added that Google Translate will be coming back to the City
website soon.
Council Member Morcomb asked for an update on the 40th Street construction project. Ms. Volkers
asked Ms. Pulkrabek to provide Council Member Morcomb with access to the street improvement
updates.
Council Member Olson asked that a five-minute Administrator’s Update be added to the Workshop
agenda moving forward so Ms. Volkers can share what is happening within the City that Council may
not need to take action on but should be aware of.
Mayor Zabel shared a new initiative which is the creation of a sixty-second video each week in which
the Mayor touches on three-to-four topics to keep an open line of communication with Oakdale
residents. He asked that Council Members provide input about pieces of information residents may
want to know about. The video will drop every Monday morning at 8:00 AM.
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JANUARY 10, 2023
PAGE TWELVE
Ms. Pulkrabek stated that she would like to utilize the City’s membership in the Ramsey Washington
Suburban Cable Commission to create shorter videos for social media. One suggested video is to
highlight what each department does at a high level. She requested that Council share any feedback
on videos they would like to see.
Mayor Zabel noted that the City has to create content that fits within the residents’ lives and not
rely on them to come to the City for information.
Council Member Olson asked for clarification on the content of the sixty-second Monday video’s.
Mayor Zabel clarified that it would only be one person, in one room, and done in one shot given the
brevity of the video. He continued that he will be using Council Topics and current City projects as
content for these videos.
Council Member Olson shared her sentiment that it appears Mayor Zabel is the face of the elected
body if he is the only one seen in these videos. She added it makes the other Council Members
seem less important.
Mayor Zabel stated from a communications perspective there is a lot of value in consistency. He
added that all Council Members should look for ways to engage with residents. The suggestion of
having a Council table at Indoor Markets was brought up.
Council Member Morcomb would like information shared with the Council before it is shared with
the public.
Council Member Ingebrigtson was in agreeance about having a consistent face for the sixty-second
videos. He added it would be beneficial if there were a controversial crisis to have a point-person.
Ms. Volkers reminded the group of the City’s emergency management plan and the relevant point-
people based on the type of event.
Council Member Ingebrigtson stated that the public will gravitate towards the elected official
regardless of what the emergency management plan says.
ADJOURNMENT
The workshop was adjourned at 6:46 PM.
Respectfully submitted,
Sara Ludwig, City Clerk
Agenda
AGENDA
City Council Workshop
Workshop
January 10, 2023
HADLEY CONFERENCE ROOM
5:00 PM
5:00 PM New Mayor Housekeeping Items
5:10 PM Tanner’s Lake Property Redevelopment Update
5:40 PM Century Ave Coalition – Guest, Lyssa Leitner Washington County
6:00 PM EDC Vacancy Interview – Carrie Frost
6:10 PM Discussion re: EDC Applicant
6:15 PM Propose a Fee for Utility Task Vehicle Annual Permits
6:30 PM Cardinal Meadows Monument and Landscape Median at 15th Street North and Hydram
Avenue North
6:40 PM Council Topics
6:55 PM Recess for Regular Meeting
COUNCIL MEMORANDUM
To: Honorable Mayor and City Council
From: Andrew Gitzlaff, Community Development Director
Date: January 10, 2023
Subject: Tanner’s Lake Property Redevelopment Update
At the workshop, Andrew Gitzlaff Community Development Director, and John Stark consultant with
Enduring Cities, will provide an overview of the sites, past proposals, recent efforts to market the sites
and the next steps in the redevelopment process.
BACKGROUND
The City of Oakdale Economic Development Authority (EDA) received special legislative approval to form
a Tax Increment Financing (TIF) district in 2008. The City EDA then purchased the former Blackie’s Eatery
restaurant site on the north side and demolished the building in 2008. In 2014, the City EDA purchased
the parcel to the south (former site of Toby’s on the Lake). The total capital expenditure for both sites was
approximately $2,422,000 including demolition.
1
The sites strongest attribute is that it is on Tanner’s Lake. It is also within close proximity to many regional
destinations such as near 3M Global Headquarters and the Gold Line BRT project. The City has been
actively marketing and pursuing redevelopment options for the two sites for the past 15 years. Former
proposals included a variety of uses such as multifamily affordable and market-rate housing, mixed-use,
boat launch/dock, medical office, restaurant and a hotel. These proposals all failed to advance due to
financial constraints (lack of both public subsidy and private equity), market changes (Great Recession
and COVID-19) and/or site challenges. Site challenges include the following:
• City sewer pipe that bisects the site
• Discontinuous parcels and irregular shape
• Shoreland setbacks
• Blighted conditions
• Unknown soil conditions
The site is identified in the adopted Oakdale 2040 Comprehensive Plan as a future redevelopment site.
The site was recently included as a priority site for the potential expenditure of TIF surplus funds in the
TIF Spending Plan for district 1-4 and 1-6 approved by Council in 2022. As of Fall 2022, staff have revived
efforts to market the site for redevelopment which included the following:
• Created a marketing flyer, posting on website
• Listed property on Minnesota Commercial Association of Real Estate/Realtors@ (MNCAR), the
foremost location for real estate transactions*
• Attend and promoted property at MNCAR Fall Expo*
• Hiring consultant Enduring Cities to assist in marketing the site and engaging with developer
*MNCAR expo attendance and listing on MNCAR exchange courtesy of City partnership with Washington
County Community Development Agency
A total of more than 20 informal conversations have been had with developers since this effort began.
There are three developers who are interested in proceeding forward. The main component of all three
proposals is multifamily housing.
NEXT STEPS
Staff intends to ask each developer to submit a concept plan and initial financial analysis. Other
developers who have expressed interest will also be given the opportunity to submit a proposal. Staff will
review the proposals based on the following criteria:
• Financial capacity of developer
• Projects of a similar scope and scale completed by the developer
• Level of financial assistance requested and ability to maximize public benefit
• Ability to maximize site(s) potential, intensity, mix of uses and inclusion of public amenities
• Timeline for completion
Staff will then make a recommendation to Council on a developer to move forward with into an exclusive
rights agreement, a precursor to a development contract. See attached handout prepared by Enduring
Cities for more information about the stages of the redevelopment process.
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FINANCIAL CONSIDERATIONS
Given the site constraints, the site will likely require public assistance in the form of TIF in order for a
redevelopment project to be financially feasible. The level of assistance will depend on how much money
the City will receive for the land and the specifics of the development proposal. Prior to entering into a
development contract, an independent financial analysis will be conducted by the City’s financial
consultant, Baker Tilly, to ensure the City is paying for what is absolutely needed to make the project
happen. To better understand current value of the property the City has hired an appraiser to complete
an appraisal of the site by mid-February.
CITY COUNCIL DIRECTION
Staff requests City Council review the information presented and be prepared to discussed and seek
clarity and provide guidance on next steps.
Attachments
Summary Presentation
Stages of the Redevelopment Process
Marketing Flyer
3
Tanner’s Lake Redevelopment
Project Update
January 10, 2023 City Council Workshop
What we will cover
• Background
• Site Acquisition / History
• Past Proposals
• Recent Efforts
• Development Process
• City and Developer Relationship
• Stages of Redevelopment Process
• Developer Feedback
• Public Financing
• Next Steps
Site Acquisition / History
• 2008
• Tax Increment Financing District formed
• City Economic Development Authority (EDA) purchased
northern half and demolished former Blackie’s Eatery
restaurant
• 2014
• City EDA purchased southern parcel (former Toby’s on
the Lake bar)
• 2019
• Tanner’s Lake site identified as a future redevelopment
site in 2040 Comprehensive Plan
• 2022
• City Council approved TIF Spending Plan for District 1-4
& 1-6 identifying Tanner’s Lake site as a priority for
potential expenditure of TIF surplus funds
• Renewed efforts by staff to market site for
redevelopment
Past Proposals
Recent Efforts
• Created a marketing flyer, posting on
website
• Listed property on Minnesota
Commercial Association of Real
Estate/Realtors (MNCAR), the
foremost location for real estate
transactions
• Attended and promoted property at
MNCAR Fall Expo*
• Hiring Enduring Cities to assist in *MNCAR expo booth and listing on MNCAR exchange
marketing the site and engaging
courtesy of City partnership with Washington County
Community Development Agency
with developer
The City & Developer Relationship
• The most successful redevelopment projects are the result of a
good City-developer relationship; including such things as
• Mutually understood expectations
• Understanding the incremental nature of the process
• As much transparency as possible from all parties
• Concept plan improvement resulting from giving and receiving open and
honest feedback
• The relationship grows from
• Eliminating Unknowns
• Increasing Commitment
PARTNERSHIP
LOW
PARTNERSHIP
LOW
PARTNERSHIP
Groundbreaking
LOW
Stages of the Redevelopment Process
• Exploration
• Concept Plan
• Exclusive Rights
• Redevelopment
Contract
• Land Use Approvals
and Financing
Approvals
• Groundbreaking
Exploration (search for proposals)
• Developer outreach restarted
• Experienced redevelopment professional hired as consultant
• Consultant reached out to 12 developers and had in-depth
meeting with 6
• 3 developers interested in making a preliminary proposal
• Multifamily likely the primary use
Developer Feedback
• Love the site – lake is number
one asset
• The surrounding area “is just
ok” – (developer would be
pioneering)
• Location near 3M Global
Headquarters, Gold Line BRT,
regional destinations
increases attractiveness View from Site
Developer Feedback
• Concerns about the site
• DNR lakeshore setback
• Sewer line bisecting the site
• Privately-owned lot segmenting the site
• Water table depth impact on structured parking
• Concerns about the process
• Several had a bad experience (prior to current City
leadership)
• Will there be a desire to “dictate” the use
regardless of market reality?
• Willingness to provide public financing to fill any
funding “gap”
• Concerns about the economy
• Materials costs, supply chain delays and (most of
all) increased interest rates Potential Sewer Relocation
• Many developers have “hit the pause button"
Public Financing Will Likely be Needed
• Why?
• Urban Land Prices are much greater than ”greenfield” sites, yet rents are
not higher at a commensurate rate
• Redevelopment sites have costs that greenfield sites do not
• Structured parking
• Relocating utilities
• Dealing with bad soils/fill
• Potential environmental issues
• Other “unknowns”
Public Financing is a Science
• TIF and other public financing are largely misunderstood; they are often
thought to be an enticement that is the result of negotiations
• In actuality, determining need for/amount of public financing is a
rational and methodical process
• Oakdale has excellent public finance advisors in Mikaela Huot and the
rest of the Baker-Tilly Team
• Developers and their investors must make a return that is greater than
they can make in other types of investment (or why build?)
• The amount of public financing is the minimum required to allow the
developers to make this return
Next Steps
• Proposed criteria for staff to evaluate proposals
• Financial Capacity of developer
• Projects of a similar scope and scale completed by the developer
• Level of financial assistance requested and ability to maximize public benefit
• Ability to maximize site(s) potential, intensity, mix of uses and inclusion of public
amenities
• Timeline for completion
• Upon completion of evaluation, staff will make a recommendation to Council
on a preferred developer to move forward with
• The preferred developer could present their proposal at a Council workshop
• Upon City Council affirmation of the preferred developer, City would enter
into an Exclusive Rights Agreement
• A full financial analysis would be conducted prior to a redevelopment
contract
Questions
The Stages of the Redevelopment Process
John Stark
Stage Exploration Concept Plan Exclusive Rights Redevelopment Contract Final Approvals
Description City markets the site to an array Developer feels comfortable City ceases marketing the site Both parties agree in Everyone is resolved that the
of developers to gauge the level enough with the available info other give the “preferred” principal that they are going project will happen and is
of interest and the breadth of to spend minimal time and developer time to do their to do the development committed to overcoming any
development possibilities. money on creating a concept. “due diligence.” based on the info gathered. obstacles.
Knowns - Site size & location - Which developers are willing - The value of the land - The exact unit/sf count - As much as possible
- general expectations on use, to spend initial time & money - The unit counts +/- 10% - Construction costs
finances, density, etc. - Which plan is most closely - General Council/PC support - Agreement on financials
- general site characteristics aligned with Policies &
(utilities, environmental, etc.) previously stated desires
Unknowns - Specific market demand - How will developers & plans - Will there be a gap - Are there issues lying in - Very few unknowns at this point
- Impact of external stakeholders be differentiated & chosen? and, if so, is it surmountable? the weeds? - Issues that pop up will be
- Level of policymaker comfort - Exact unit counts - Is there sufficient market - Details, details, details resolved and will not threaten the
with public assistance - Construction costs demand for the units overall project
- Policymaker comfort with - Value of development - Working to ID construction
in/exclusion of affordability, etc. costs
City - Provide known policy - Provide existing (public) - Not to engage with other - Approval of type & - Granting land Use Approvals
Commitment information (primarily Comp documents developers for x days amount of public assistance - Development Agreement
Plan & Zoning) - Policymakers ask questions - IF there is a Gap, there is a - Reviewing construction - Issuing building permits
- Forthcoming about engaging and provide general feedback general willingness to consider plans - Closing on the sale of the City-
multiple developers (but no decisions) financial assistance - Processing land use owned property
- Forthcoming about knowledge - Pay for general financial - Schedule/process for land approvals
of policymakers desires to the analysis & appraisal use approvals
extent known
Developer - Spending initial time (a - Spending money on - Spend x days refining - A lot of “soft” money and - Development Agreement
Commitment developers biggest liability) architects proposal to include detailed increasing “hard” money - Closing on the property purchase
& - Spending time seeking architecture & financing + - Closing on their financing
Expenditures community input basic engineering - Signing construction contract
- Market research to ID need - Pay for the City’s costs
Primary Action The identification of qualified The Concept is generally The Gap has been identified “Dotting the I’s and crossing Groundbreaking!
Needed to developers with an interest supported (but not necessarily and there is public the T’s”
Advance to “the deal” at this point) commitment to helping fill it
Next Step
UNIQUE LAKEFRONT PROPERTY
Development Opportunity on Tanners Lake in Oakdale
253 Geneva Avenue North, Oakdale, MN 55128
PROPERTY HIGHLIGHTS
• 2.25 and 0.5 acre shovel-ready redevelopment parcels
1 • Owned by Oakdale Economic Development
Authority (EDA), guided mixed-use
• Across from 3M Global Headquarters
(10,000+ employees)
• Adjacent to Condo Building and Hotel
Privately • Located in a Redevelopment TIF District
Owned • Tanners Lake with gorgeous views and minimal
Vacant
Parcels shoreline setbacks
• Located along Gold Line Bus Rapid Transit (BRT) route
and trail system opening 2025
LOCAL AMENITIES
• 5 miles from downtown St. Paul
• 20 minutes to MSP International Airport
• 270,717 population (2021) within 5 mile radius,
projected 281,926 in 2026
2 • MN Hwy 120 traffic count 18,600
• I-94 traffic count 82,000
• Bordered by Maplewood and Woodbury
DEVELOPMENT OPPORTUNITIES:
• Restaurant
• Hotel
• Office
• Mixed-Use Residential
• Other Commercial Uses
1- Approximately 0.5 Acre
2- Approximately 2.25 Acres
www.ci.oakdale.mn.us
UNIQUE LAKEFRONT PROPERTY
Development Opportunity on Tanners Lake in Oakdale
253 Geneva Avenue North, Oakdale, MN 55128
Woodbury
CITY OVERVIEW
RESOURCES AVAILABLE
The City of Oakdale is a vibrant and growing suburban
community within Washington County, east of the Minneapolis- • Additional City and County
St. Paul metropolitan area. Oakdale is conveniently located Demographics
along Interstates 94 and 694 and is known for its • Previous development proposal site
neighborhoods, community parks and a business-friendly plans (Hotel, Office, Multi-Family,
environment. Over 625 businesses call Oakdale home. Restaurant)
• Alta Surveys (2008)
QUICK FACTS • Phase 1 Environmental Site
Population: 28,303 Assessment (2008)
Households: 11,304 • Preliminary Geotechnical Report
Square Miles: 10.94 (2008)
Median home value: $264,300 • Utility Location Maps (Current)
Median household income: $72,511 • Traffic Count Maps from MnDOT
• Oakdale Business Resource Packet
• Free business consulting services and
gap financing through MCDD Open to
Business
CONTACT INFO • Size-Up your potential business with
Andrew Gitzlaff the new Washington County tool
Community Development Director
651-730-2806
Contact City Staff for This Info
andrew@ci.oakdale.mn.us
www.ci.oakdale.mn.us
COUNCIL MEMORANDUM
To: Honorable Mayor and City Council
From: Christina M. Volkers, City Administrator
Date: January 10, 2023
Subject: Century Avenue (TH 120) Coalition
BACKGROUND
Washington County Planning staff, Lyssa Leitner Planning Director and Madeline Dahlheimer Planner,
will attend and present their proposal for a new Coalition to further efforts for the long term and ongoing
project related to re-envisioning and reconstruction of Century Avenue/TH 120.
MnDOT launched Phase 2 of their Planning and Environmental Linkages (PEL) study, which will help
inform and guide future investment and improvements in this corridor. An initial priority for the coalition
could be to play a key role as a community stakeholder group during the PEL study process, meeting 3-4
times over the course of the 12-18 month study to receive updates and give feedback to MnDOT’s project
management team.
Information and update meetings have occurred over the years with communities surrounding the
Century Avenue corridor. It is now being recommended that a coalition of Century-adjacent communities
could be an effective platform to centralize communication, help advance corridor improvements, and
advocate for funding.
FINANCIAL CONSIDERATIONS
Washington County staff will share information on potential financial commitments of the City towards
this project.
COUNCIL DIRECTION REQUESTED
It is requested that Council engage with Washington County staff on this initiative including participation
by the City of Oakdale and the City of Oakdale’s potential responsibilities including financial. It is then
requested that the Council provide intent.
Attachment
PowerPoint Presentation on Century Avenue Coalition
Century Avenue (TH 120) Coalition
Oakdale City Council
January 10, 2023
Current and Near-Term Projects
• Studies:
• MnDOT Phase 2 Planning and Environmental Linkages Study
694
• From CSAH 12/Wildwood Rd (previously TH 244) to I-94
• Scope 36
• Engage stakeholders
• Review existing conditions
• Identify and evaluate improvements
• Turnback:
• Counties won’t take on financial liabilities
• MnDOT PEL Study will help identify corridor needs and costs
• Use to develop priorities for jurisdictional transfer over the next
decade (or more)
94
2
Current and Near-Term Projects, cont.
• Transit:
• METRO Gold Line: under construction – crosses Century
Ave at I-94 METRO Purple Line: considering routes along
694
Century Ave to/from Century College 36
• Grants:
• Washington County submitted Corridors of Commerce
grant for 36 and Century Ave.
• Washington County was awarded $7 million from Regional
Solicitation process for reconstruction of Century north of
I-694 – in CIP for 2027 construction – turnback would need
to occur before construction begins
94
3
Century Avenue Coalition
4
What are the challenges?
Current MnDOT jurisdiction with long-term plan for turnback to counties
Improvements along Century or at Century and 36 are not programed in MnDOT
plans. Only project north of I-694 programmed in County Plans. County supports
interchange work at Century and 36
Traffic congestion and multi-model needs continue to increase
5
What are the opportunities?
Funding (federal infrastructure bill, earmarks, grants, bonding)
Significant interest from multiple jurisdictions to implement improvements
Multiple projects / corridor activities with overlapping stakeholders
6
Opportunities - Many interested parties
• Two counties and nine cities are invested in this corridor
• To be effective at pursuing federal and state dollars we need to be:
Unified
Organzied
Strategic
Speak with one voice
7
Coalition Benefits
• Need an entity to bring the partners together as one voice
• Proposal: TH 120/Century Avenue Coalition
• Counties as lead, Cities as coalition partners
• Brand under one name
• Initial focus on:
• Working with MnDOT and Metro Transit on their ongoing projects
• Project Prioritization
• Funding requests
• Schedule reoccurring meetings
• No formal bylaws, agreements, or financial commitment at this time – may be desired in the
future
• Request: Mayor or councilmember from each City as Coalition member plus alternate
8
Next Steps
• Additional meetings with city
councils (through January)
• Early 2023: Kick-Off Century
Coalition – coordinated with
MnDOT engagement on Planning
and Environmental Linkages (PEL)
study
• 2023 Legislative session
engagement, as-necessary
9
Questions
Lyssa Leitner
Planning Director
Washington County Public Works
Lyssa.Leitner@co.Washington.mn.us
651-430-4316
10
COUNCIL MEMORANDUM
To: Honorable Mayor and City Council
From: Community Development Director, Andrew Gitzlaff
Date: January 10, 2023
Subject: Economic Development Commission Interview Candidate: Carrie Frost
BACKGROUND
At the January 10, 2023 work session, the City Council will interview an employee of an Oakdale
business interested in serving on the Economic Development Commission. The Economic Development
Commission has two vacancies. Community Development Director and staff liaison to the Economic
Development Commission, Andrew Gitzlaff has completed the staff interview of the candidate.
Application and staff interview feedback materials will be provided to the City Council separately.
Interview Schedule:
6:00 PM Carrie Frost
COUNCIL MEMORANDUM
To: Honorable Mayor and City Council
From: Christina M. Volkers, City Administrator
Date: January 10, 2023
Subject: Propose a Fee for Utility Task Vehicle Annual Permits
BACKGROUND
At the November 23, 2021 City Council meeting, Council waived the reading and adopted
Ordinance 878, Amending Chapter 12 – Motor Vehicles and Traffic, adding Article 8 – Utility Task
Vehicle (UTV) Operation on Local City Streets; and for the inaugural permit process to commence
January 2022.
Feedback obtained in December of 2022 from the Fire Department, Police Department and Public
Works was there were no concerns or complaints from the public regarding the use of UTVs in the
community.
Now that UTV permits will continue, city staff is asking for guidance on whether or not the City
should assign a fee to the UTV permits going forward. A line would be added to the 2023 Fee
Schedule for this item if so.
COUNCIL DIRECTION REQUESTED
Staff is requesting guidance on whether the City should assign an annual fee to the UTV permits
going forward.
COUNCIL MEMORANDUM
To: Honorable Mayor and City Council
From: Brian Bachmeier, Consulting City Engineer
Date: January 10, 2023
Subject: Cardinal Meadows Monument and Landscape Median at 15th Street North and Hydram
Avenue North
BACKGROUND
As part of the City Project R2023-01 Street Reconstruction project, a survey was sent to the Cardinal
Meadows neighbors to determine if they support or oppose the removal of the monument sign and
median.
Removal of the monument sign and median would be beneficial for these reasons:
• Improve the efficiency and effectiveness of the City’s snow removal
• Allow for creation of a left turn lane at the intersection
• Allow for a wider boulevard between the sidewalk and curb
• Create opportunities for on-street parking for the abutting owners
• Eliminate neighborhood’s responsibility to maintain landscaping and sign
A total of 27 surveys were mailed, 13 responded to keep the monument sign and median, 6 favored removal,
and 8 did not respond.
COUNCIL DIRECTION REQUESTED
Staff is looking for direction from the City Council on whether to keep or remove the monument sign and
median.
Attachment
Cardinal Meadow Resident Comments Received
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