City Council Workshop
Regular MeetingOakdale, MN · April 25, 2023
Minutes
WORKSHOP MINUTES
OAKDALE CITY COUNCIL
APRIL 25, 2023
The City Council held a workshop on Tuesday, April 25, 2023 at Oakdale City Hall, 1584 Hadley
Avenue North, Oakdale, Minnesota. The meeting began at 6:00 PM.
Present: Council Member and Acting Mayor Jake Ingebrigtson
Council Members: Noah Her
Andy Morcomb
Susan Olson
City Staff Members: Sara Ludwig, City Clerk
Andrew Gitzlaff, Community Development Director
Nick Newton, Police Chief
Lori Pulkrabek, Communications Manager
Jim Romanik, Public Works Manager
Rachel Tierney, City Attorney
Kevin Wold, Fire Chief and Acting City Administrator
Jason Zimmerman, Finance Director
Absent: Mayor Kevin Zabel
Christina Volkers, City Administrator
PARK DEDICATION FEE OVERVIEW
Community Development Director Andrew Gitzlaff began by explaining the reason for the
discussion was the result of a request from Council at the February 14, 2023 workshop meeting
to provide more information on park dedication fees. He provided an overview of the changes that
took place in 2022 which resulted in the City updating the park dedication fee schedule to better
align with identified park land needs, industry best practices, and to comply with a recent court
ruling (Puce v. City of Burnsville). Mr. Gitzlaff noted that State statute gives the City authority to
require park dedication, but also provides the standards and foundation for setting the amount of
such dedication. Additionally, Chapter 21, Sec. 21-10 of the City Code, authorizes the City to
collect park dedication as part of the land subdivision process.
Council Member Olson asked for clarification on when the City can require park dedication fees.
Mr. Gitzlaff explained that within Planning there are two types of Code – Zoning, which lays out
the types of uses that can develop and general performance standards, and Subdivision – which
regulates how land can be subdivided. If land is subdivided or replaced, the City can require park
dedication fees.
Mr. Gitzlaff explained that in creating the City’s methodology to calculate park dedication fees, the
City wanted to be able to show they had a reasonable need for park dedication. Staff consulted
with the City’s legal counsel during this process to ensure there was defensibility if park dedication
fees were challenged.
WORKSHOP MINUTES
APRIL 25, 2023
PAGE TWO
Mr. Gitzlaff went on to review the detailed calculations included in the methodology that was used
to develop the amended 2022 park dedication fees (which are the same as the current 2023
fees) for both residential and commercial sites. He noted that the methodology can vary by city,
and made reference to the attached fee schedule comparison to other cities in the metro.
Mr. Gitzlaff stated that 2023 park dedication fees are still relevant as they were adopted in June
2022, however, staff may look at re-evaluating the 2024 fees during the annual review of the
City’s fee schedule, as updated appraisal values will be available at that time.
Lastly, Mr. Gitzlaff explained how the City applies the park dedication methodology to a
development project. If there’s a park need in the area then the City will seek land dedication. If
there is not a park need directly in the area then the City will seek a cash equivalent. The cash
collected in the latter scenario is held in a separate park dedication account and can only be used
for an identified capital need or an improvement project. He added that these conversations with
developers happen early on in the process so that whatever is agreed upon for park dedication is
a condition of approval.
In response to Council Member and Acting Mayor Ingebrigtson’s question about the State
legislature setting the standard for all municipalities, City Attorney Rachel Tierney explained that
it could be unconstitutional if there was one uniform standard as it relates to taking land. She
added that Minnesota State Statute 462.358 is derived directly from U.S. Supreme case law.
In response to Council Member Ingebrigtson’s question about the City’s ability to charge a park
dedication fee if it is fully developed, Attorney Tierney stated that there will likely always be a need
for parks as the City redevelops and evolves. She expressed the importance of conducting studies
and having evidence to support the City’s need for park land.
Council Member Ingebrigtson asked for clarification on the specific language mentioned in the
State statute in regard to physical land versus a cash equivalent. Attorney Tierney clarified that
the statute allows for a cash equivalent as there is an understanding that park maintenance is a
cost for cities.
In response to Council Member Morcomb’s question about the City’s responsibility to develop a
park if the developer dedicates land versus a cash equivalent, Attorney Tierney stated that there
has to be a common-sense agreement between the City and the developer. Mr. Gitzlaff added that
the specific responsibilities of each party would be included in the development agreement.
As a follow up question to Council Member Morcomb’s statement that it is common for cities to
have these fees, Council Member Olson asked if the park dedication fee could be used as a way
to bring development into the City, especially if the fees were lower than surrounding cities. Mr.
Gitzlaff stated that the City’s park dedication fees have not been looked at as a way to attract
developers.
Council Member Her asked for examples of how park dedication fees have been used by the City
in the past. Public Works Manager Jim Romanik noted that the last park built in the City was
Powerline Park, which was prior to 2018. Finance Director Jason Zimmerman pointed out that
park dedication funds have been used for other park-related capital improvements since then.
WORKSHOP MINUTES
APRIL 25, 2023
PAGE THREE
In response to Council Member Her’s question about using the park dedication fund to update the
City’s parks, Mr. Gitzlaff noted that this is one of the sources. He added that the City has to clearly
indicate how the park dedication fees are being used and identify indirect correlation to the
development.
Council Member Olson asked about the justification for charging park dedication fees to
commercial developers, specifically the theory about employees using local park facilities. Mr.
Gitzlaff indicated more in-depth research is needed to find the answer to this question, however,
the City needs to be flexible in this regard. Council Member Olson asked a follow up question
about the City needing sound justification if their fees are going to fluctuate based on the
individual development. Attorney Tierney clarified that the law requires the City to do an individual
assessment of its need so each project should be looked at on an individual basis using the
developed methodology discussed previously. She further added that these determinations are
made at a staff level, and Council should feel comfortable relying on the staff’s assessment, but
that they may be called upon if a developer appeals the staff’s determination of the park
dedication fee.
In response to Council Member Her’s question about comparing the City’s park dedication fees
for commercial properties to the Met Council’s Sewer Availability Charge (SAC) and Water
Availability Charge (WAC) methodology, Mr. Gitzlaff stated the same logic is used in terms of
portioning out the fees needed to cover the infrastructure that is needed to support the use.
In response to Council Member Ingebrigtson’s question about the expectation of Council to largely
rely on staff’s recommendation when it comes to park dedication fees, Mr. Gitzlaff said that is to
be expected, however, staff does expect feedback and questions from Council as they can provide
a different perspective.
Council Member Olson stated she will do additional research online to try to understand the history
and theory behind park dedication fees for commercial developments. In response, Mr. Gitzlaff
offered to have staff look into this as well and provide additional information via email.
In response to Council Member Her’s question about the possibility of waiving park dedication
fees for commercial development, Mr. Gitzlaff noted that there could be a gap in the park
dedication fund if the City chooses to do that.
COUNCIL TOPICS
Council Member Her shared that he attended the Oakdale Area Chamber of Commerce (OACC)
Spring Fling. Also, his family participated in the Park Clean Up Week helping pick up trash along
Hadley Ave North. He thanked City staff for picking up the garbage bags in a timely manner.
Council Member Morcomb shared that he attended the Washington County Board of
Commissioners meeting. He suggested that the City look into having a drop-off collection box for
used needles and old prescription drugs at City Hall which would be owned and managed by
Washington County.
Council Member Olson asked to discuss Section 13-4 – Trapping – of the City Code after she saw
a complaint from a resident on Facebook in relation to live-trapping. If there is support from her
colleagues, she requested that additional language be added about the timeframe in which a
resident must remove an animal from a live-trap.
WORKSHOP MINUTES
APRIL 25, 2023
PAGE FOUR
In response to Council Member Her’s question about policing this type of ordinance, Council
Members Olson and Ingebrigtson said it would be complaint-based.
Council Member Morcomb asked if the City receives calls from residents about removing wild
animals from their property. Police Chief Nick Newton confirmed that these calls do come in.
Chief Newton offered to ask the Minnesota Department of Natural Resources if there is sample
“live-trap” language that can be added to the City Code as Council Member Olson is suggesting.
Council Member Morcomb would be supportive of adding additional “live-trap” language to ensure
that trapped animals are not being treated inhumanely.
In reference to Section 13-3 – Curfew – of the City Code, Council Member Olson asked if the City
uses the language as a guide for policing juvenile activity. Chief Newton explained that officers
use it as a baseline, but citations are rarely issued. Council Member Olson noted that she is not
looking to change anything in this section, but merely wanted to ask questions about it.
Council Member Her noted some graffiti on garbage cans and the pavilion at Guthrie Park. He also
mentioned that on a portion of the Hadley Avenue North Trail there is dog feces that is not being
picked up. He suggested posting signs stating “pick up after your dog.”
Council Member Her asked staff if a building permit is needed for a treehouse as he saw a resident
question about this on Facebook. Staff is to look into this and provide clarification.
Council Member Her mentioned that he saw on Facebook several residents who have cancelled
trash service have been charged a large fee for the removal of their trash receptacle. Council
Member Olson noted that the City Code related to trash haulers does address this, however, staff
should review the specifics and address accordingly.
Council Member Ingebrigtson asked for support from the group to move forward with adding a
mental health professional for the police department with funding provided by Washington County.
He suggested that Commissioner Karworski attend a future workshop to discuss this possibility.
The Council was supportive.
Acting City Administrator and Fire Chief Kevin Wold recapped the action items to relay back to City
Administrator Volkers upon her return.
ADJOURNMENT
The workshop was adjourned at 6:48 PM.
Respectfully submitted,
Sara Ludwig, City Clerk
Agenda
AGENDA
City Council Workshop
Workshop
April 25, 2023
HADLEY CONFERENCE ROOM
6:00 PM
(Note Time Change)
6:00 PM Park Dedication Fee Overview
6:25 PM Council Topics
6:45 PM Recess for Regular Meeting
COUNCIL MEMORANDUM
To: Honorable Mayor and City Council
From: Andrew Gitzlaff, Community Development Director
Date: April 25, 2023
Subject: Park Dedication Fee Overview
BACKGROUND
At the February 14, 2023 Council Workshop during a Management Discussion item with the Community
Development Director, Council expressed an interest in learning more about the park dedication/fee
process.
In early 2022, staff worked with the planning consultant Stantec to update the City’s park dedication
fee schedule to better align with identified park land needs, industry best practices, and to comply with
a recent court ruling (Puce versus City of Burnsville) that reaffirmed the need for a rough proportionality
between the fee and the need for park land. This case was appealed to the Minnesota Supreme Court.
The case was heard by the Minnesota Supreme Court in October 2022, but a ruling has not been
released yet. The League of Minnesota Cities submitted an Amicus Brief on behalf of the City of
Burnsville.
Minnesota State Statutes 462.358 gives the City the authority to require park dedication, but also
provides the standards and foundation for setting the amount of such dedication. A city may take park
dedication based on projected need for park land from a subdivision. Park dedication can be in the
form of land dedication or cash equivalent, based on average fair market value.
Chapter 21, Sec. 21-10. Land Dedication of the Oakdale City Code of Ordinances provides specific
authorization for the City to collect park dedication as a part of the land subdivision process either as
cash or land, or a combination of both, and outlines the eligible uses for park dedication funds.
METHODOLOGY
Below is a summary of methodology that was used to develop the amended 2022 park dedication fees
which is the same as the current 2023 fees:
Oakdale’s current population and park acreage translates to roughly 17.4 acres per 1,000 population.
National standards for park development recommend 15 to 20 acres per 1,000 people. The City
Council could reasonably conclude that the current park and recreation system serves the City well and
therefore this ratio of 17.4 acres/1,000 population is what is needed going forward for the park
dedication formula which translates to:
0.052 acres/unit for single family
0.042 acres/unit for medium density (townhomes)
0.031 acres/unit for high density (apartments)
Since more dense housing types have fewer residents per unit, the impact of duplexes, townhouses,
quads, apartments, etc. is somewhat less per unit than single family.
1
Employees use local park facilities, but typically not as much or as often as residents do. This is difficult
to quantify exactly, but a reasonable assumption is that the impact of employees is roughly half that of
the residential population proportionally. Commercial-Industrial (C/I) land would dedicate half the
residential amount, based on employees rather than residents, which translates to 5.5% of the
undeveloped C/I land. There is limited national research on park needs for C/I land. A search of peer
and neighboring cites identifies park dedication requirements between 5%-10% of the land.
Under Minnesota State Statute, a municipality may choose to accept a cash fee (as set by ordinance)
from the applicant for some or all of the new lots created in the subdivision, based on the average fair
market value of the unplatted land or “fair market value” of land to be redeveloped. The City of
Oakdale, along with many other cities, has addressed this provision by adopting a city-wide average
land value for unplatted land based on market data available (assessor info, recent sales, market
studies, etc.). This method provides a consistent application for all projects and clarity to the City and
the developer on what fees will be charged. The City Attorney determined this method conforms with
Minnesota State Statute and the recent Burnsville court case.
Based on an analysis of 17 vacant parcels in Oakdale that will likely develop for residential uses, the
average assessed value of this land, as calculated from Washington County Assessor figures, is
$82,156 per acre for residential (including a 10% upward adjustment to account for difference between
assessed and market value). Using this value and the above acreage factors, we get the following cash
park dedication rates:
Low density: 0.052 acre/unit X $82,156/acre = $4,272/unit
Medium density: 0.042 acre/unit X $82,156/acre = $3,451/unit
High density: 0.031 acre/unit X $82,156/acre = $2,547/unit
Based on an analysis of eight (8) vacant parcels that will likely be developed for commercial use, the
average assessed value of this land, as calculated from Washington County Assessor figures, is
$293,590 per acre for commercial-industrial land (including a 10% upward adjustment to account for
the difference between assessed and market value). This value would be used with the 5.5% factor
calculated and noted above to determine the cash dedication from commercial-industrial land.
Examples of potential land and cash park dedication scenarios for different types of development are
included in the Stantec research memo attached.
PREVIOUS COUNCIL ACTION
The City Council discussed the revised park dedication methodology and proposed fees at the May 10,
2022 and June 14, 2022 Council Workshops. At the June 28, 2022 Council meeting, Council approved
an amendment to the 2022 City fee schedule to update the park dedication fees as described above.
The park dedication fees did not change in the 2023 City fee schedule because they had already been
updated to reflect current land values.
COUNCIL DIRECTION REQUESTED
The City Council should review the background information and ask staff questions/engage in a
discussion about the park dedication process.
Attachments
Stantec Background Research Memo on Park Dedication, dated June 2, 2022
Statutory Authority and Legal Background
Fee Schedule Comparison
League of Minnesota Cities Informational Memo on Subdivisions, Plats, and Development Agreements
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