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HomeMy WebLinkAboutParks 2004-2009 Zone ImprovmentCARMEL/CLAY PARKS IMPACT FEE ZONE IMPROVEMENT PLAN 2004- 2009 Zone Improvement Plan May, 2004 Introduction On November 4, 1996, the City of Carmel passed and approved Ordinance No. D-1249, commonly known as the Parks and Recreation Impact Fee Ordinance or, the "PRIF Ordinance" for the City of Carmel and Clay Township (collectively, the "Community"). Consistent with Indiana Code Section 36-7.4-1340, the PRIF Ordinance became effective in May of 1997. With an initial 5 year life, the Ordinance provides that the Common Council of the City of Carmel (the "Council"), may consider and adopt such amendments as are necessary to cause a substantive compliance with all constitutional and statutory requirements, and based on economic and market forces over which the Council has no control, the Council may therefore from time to time cause a review of the validity of the Impact Fee, the Impact Zone and the Zone Improvement. In March of 2000, the Carmel-Clay Board of Parks and Recreation (the "Park Board")initiated a review to determine the appropriateness of the $84.00 Impact Fee and after such review, the Council amended the PRIF Ordinance to increase the impact fee to $527.00, effective June 21,2001, (the "2000 PRIF Ordinance"). Once again, in October of 2003, the Park Board passed a resolution asking the Council to cause a review of the appropriateness of the $527.00 Impact Fee. In response, the Council directed the Director of the Department of Community Services to cause a review to be made of the 2000 PRIF Ordinance to determine the appropriateness of the Impact Fee, the Impact Zone and the Zone Improvement Plan and if deemed necessary, to prepare a proposed replacement impact fee ordinance. The rapid development experienced in the Community over the past five years is comparable to that experienced in the prior fifteen years and therefore, the Community continues to be one of the fastest growing areas in Central Indiana. Residential and commercial development continue to flourish, and the Community continues to prosper. The continuation of prosperity and rapid development verify the need to continually enhance current plans for future growth and as was achieved when the PRIF Ordinance was first adopted and then amended with the 2000 PRIF Ordinance, the objective is to keep the Community goals in focus. Consistent with the 2020 Vision Process adopted in 1995 to define the Community's goals to preserve open space and expand recreation opportunities, the Council adopted in 1996 the original PRIF Ordinance and then the amended 2000 PRIF Ordinance and now revisits it to keep focus on the Community's goals. This plan serves as a Zone Improvement Plan (sometimes herein referred to as the "Plan" and in the adopting Ordinance as the "2004-2009 Zone Improvement Plan"), in compliance with lC 36-7-4-1300 et seq. As such, it provides a foundation for imposing impact fees on future development to offset additional costs for park system expansion and improvements. Infrastructure Zone The infrastructure zone is a single zone coinciding with the boundaries of Clay Township, Hamilton County, Indiana (the "Infrastructure Zone"). The subsequent growth projections and estimated costs described in this Plan specifically pertain to this Infrastructure Zone. Approval Process The following is the approval process through which the prior zone improvement plans and through which this Plan proceeded to become official documents of the Community: · Approval by the Carmel-Clay Board of Parks and Recreation; · Review by Carmel's Impact Fee Advisory Committee, which is composed of five members of the Carmel Plan Commission (see lC 36-7-4-1312); · Public hearing and recommendation by the Carmel Plan Commission; and · Approval by the Common Council of the City of Carmel (see lC 36-7-4-1311). Approval by the Council is the final step by which to establish the Plan as a part of the Comprehensive Plan of the Community and provides the basis for increasing the park and recreation impact fee. Once approved by the Council and once the time frame has run for the Ordinance by which the Impact Fee is increased and the Ordinance is in effect, this Plan will be considered to have replaced the 2001-2006 Zone Improvement Plan adopted in 2000. PARK AND RECREATION DEPARTMENT In 1991, the City of Carmel and Clay Township created the Carmel-Clay Board of Parks and Recreation (the "Board") by virtue of an agreement entitled "Park Joinder Under Interlocal Cooperation Act" (the "1991 Joinder Agreement"). The Joinder Agreement was adopted by the Council on or about August 5, 1991 and by the Clay Township Board on or about August 20, 1991. On July 30, 2002, the Council and the Clay Township Board adopted and approved the agreement entitled "lnterlocal Cooperation Agreement Between the City of Carmel, Indiana, and Clay Township of Hamilton County, Indiana" (the "2002 Joinder Agreement"). The 2002 Joinder Agreement was effective January 1, 2003. The Board consists of eleven members. The Mayor of Carmel appoints six members, with no more than five from the same political party, and the Clay Township Trustee appoints four members. The remaining member is a member of the Board of Education for Carmel/Clay Schools. The Board is empowered to grow, administer and manage the Carmel- Clay Park and Recreation Department (the "Park Department"), acquire and develop park land, establish rules governing the use of parks and recreation facilities and provide protection of park property and activities. The Board is responsible for hiring personnel, preparing its annual budget and annual report. The Board also has other contractual and administrative powers, all as set forth in the 2002 Joinder Agreement. Funding The Council and the Clay Township Board determine and provide revenues for operation of the Park Department. Budget share is determined by assessed valuation. Several non-reverting funds were established in 1993 at the request of the Board and, upon adoption of the 2002 Joinder Agreement, the Council established identical funds as the City's fiscal officer assumed the fiscal oversight responsibility of the Board. These include a Special Non-Reverting Capital Fund for land and capital improvements and a Special Non-Reverting Operating Fund to receive program fees, grants and gifts. The annual budget is formulated and approved by the Board and submitted to the Council and the Clay Township Board for their respective approvals. The Board may issue bonds in the name of the City or the Township to acquire land for parks or finance improvements, all as set forth in the 2002 Joinder Agreement. After the Board holds a public hearing to disclose the purposes for which the bond issue is proposed, the amount of the proposed issue, and all other pertinent data, it must obtain an ordinance from the Council and a resolution from the Clay Township Board approving the bond issue. To raise money to pay for the bonds, the Council and Township Board may levy a special property tax in one special taxing district on the entire township. Grants, donations and gifts have been regularly received and utilized in the development of the Carmel-Clay Park and Recreation System. PARK & RECREATION ACTIVITY SINCE JANUARY 2000 NOT INCLUDED IN THE ANALYSIS OF THE 2000 PRIF ORDINANCE' 2OOO · Amended and increased the Park Impact Fee to ensure that a minimum level of service is maintained as the Community grows; · Acquired 134 acres for Central Park; · Engaged design consultants to design and create construction documents for Monon Greenway Trail intersections; · Improved Monon GreenwayTrail intersections; · Improved West Park, Phase I; · Improved I nlow Park, Phase I; · Engaged design consultants to create construction documents for West Park, Phase II; and · Engaged design consultants to create construction documents for Monon Greenway Trail, Final Phase. 2001 · Engaged design consultants to design and create construction documents for Inlow Park, Final Phase; · Improved Inlow Park, Final Phase; Engaged design consultants to design Lenape Trace Park (formerly Gibraltar Park); · Engaged design consultants to design Pleasant Grove Park improvements; · Engaged design consultants to design the Master Plan of Hazel Landing Park; · Improved Final Phase of Monon Greenway Trail; · Improved West Park, Phase II; · Improved River Heritage Park playground; · Improved Lenape Trace Park; · Engaged design consultants to create the Master Plan of Central Park; and · Contracted to allow wetland mitigation at West Park. 2OO2 · Engaged design consultants to create construction documents for West Park, Phase III; · Prairie restoration at Prairie Meadow Park; · Prairie restoration at River Heritage Park; · Contracted to use Township fire station for west side maintenance local; · Improved West Park, Phase III; · Acquired approximately thirty acres north and adjacent to Central Park to increase the acreage to 164 acres and provide an entrance off of 116th Street (Central Park North Campus); · Engaged consultants to acquire southeast 5 acre tract to be added to West Park; and · Engaged consultants to design and create the Master Plan for Founders Park. 2003 · Engaged consultants to lead the development process for Central Park; · Acquired southeast 5 acre tract increasing West Park to 80 acres; · Engaged consultants to create a Master Plan and develop the Schematic Design for the southeast 5 acre tract added to West Park; · Engaged consultants to create the Schematic Design of Founders Park; · Improved West Park, Phase IV; · Engaged consultants to design restrooms for Monon trailheads; · Improved Monon Restrooms; · Amended the 2001 Master Plan and developed Schematic Design of Hazel Landing Park; Started development of Hazel Landing Park, Phase II (boat launch and parking lot); · Improved Meadowlark Park shelter and play structures; · Improved Carey Grove Park with play structures; · Engaged consultants to design shelter for River Heritage Park; · Improved River Heritage Park with a shelter; · Engaged consultants to design a shelter at Inlow Park; and · Improved Inlow Park with a shelter. INVENTORY OF EXISTING CARMEL-CLAY BOARD OF PARKS AND RECREATION INFRASTRUCTURE The table below lists all the park sites and inventories the existing facilities. In addition to these facilities developed by the Park Board, the City of Carmel has developed for recreation use an entertainment gazebo at the Carmel Civic Center and is in the process of developing City Center within which a reflecting pond and other amenities will be used for recreation purposes. Additionally, Clay Township funded significant improvements at Carmelot Park. This property is owned by the City of Carmel and leased to Hamilton County. Carmel-Clay Board of Parks and Recreation Recreational Facilities Inventory by Park Location Park Facilities: Sand Volleyball Court Basketball Court Fishing Open Greenspace Shelteri Prairie Grass Adjacent to Riveri Interpretive Trail Natural Trail Paved Trail Picnic Areas Artesian Well Playground Amphitheater Softball Diamond Restrooms Soccer Water Feature STANDARDS OF PARKS AND RECREATION The previous chart represents the inventory of public park and recreation facilities in the Community. It is from this inventory that the current level of service has been established. DEVELOPMENT PROJECTIONS The population projection for the Community is based upon historic building permit trends. An average of 694 single family residential building permits were issued annually from 1985 through 1995. Using this method of projection, the Carmel-Clay area was projected to have a population of approximately 62,118 persons in the year 2000 (64,709 per 2000 census), 84,958 persons in the year 2010 and 98,788 persons at build-out in the year 2020. The second chart on this page portrays the distribution of growth by land use type in the Community. POPULATION ESTIMATE II Clay Township 43,007 64,709 84,958 96,378 98,788* *Between 1990 and 1995 a total of 3,255 residential building permits were issued. This methodology uses 1990 census population, median household size figures and building permit data to calculate population growth since 1990. Between 1995 and 1999 an average of 996.2 residential single family building permits were issued. 2000. Source' Carmel/Clay Department of Community Services Building Permit Trends, 1995; Carmel-Clay Township Land Use Trends Census Year 1990 1995 2000 2010 ACRES % ACRES % ACRES % ACRES % Residential 11,995 38.5 14,413 46.3 17,750 57.0 21321 68.5 Commercial 1685 5.4 2820 9.1 3046 9.8 3325 10.7 Public/Institutional 1740 5.6 2547 8.1 2985 9.6 3210 10.3 Golf Courses 730 2.4 993 3.2 2305 7.4 2425 7.8 Ag/Undeveloped 14,986 48.1 10,365 33.3 5050 16.2 855 2.8 31,136 100 31,136 100 31,136 100 31,136 100 * Assumes build-out in 2015, average annual growth @ 0.5% per 2020 10 ESTIMATE OF PROJECTED INFRASTRUCTURE & COSTS (revised 5~7~04) The earlier discussion established a framework for determining park and recreational infrastructure needs. An estimate of the nature, location and cost of the additional infrastructure that will be needed to serve new development in the impact zone over the next ten years (through 2014) includes improvements to the following parks: 1. Founders Park $ 2,900,000.00 2. Hazel Landing Park $ 1,000,000.00 3. West Park $ 4,500,000.00 4. Central Park Phase II $25,000,000.00 TOTAL: $33,400,000.00 An estimated $1,140,000 of the above total is expected to come from "nonlocal revenue" (as defined in lC 36-7-4-1321)---namely from gifts--and is therefore excluded from the impact fee formula (see lC 36-7-4-1320). Thus, the impact per new unit of residential development over the next ten-year planning period is approximately $3,665.00. This is computed by taking the value of the proposed new construction ($33,400,000), less the amount of nonlocal revenue ($1,140,000), or $32,260,000.00, and then dividing the remainder by the projected number of new dwelling units (8,800) over the ten-year planning period. ]! By comparison, the Current Level of Service (see lC 36.7.4-1302) for existing development in the impact zone is estimated by taking the current value of the Carmel-Clay Park System and dividing that value by the total number of current households. Value of current park system' · Land (525 Acres at $55,000 per acre)' · Improvements: $ 28,875,000.00 $ 17,000,000.00 TOTAL' $ 45,875,000.00 · Divided by number of current households' Estimated Current Level of Service 27,624 = $1,660 / unit of existing development The community is planning to improve this Current Level of Service for existing development over the ten-year planning period by investing the following amounts in Central Park Phase I' · Proceeds of Central Park Bond (2004 Issue): · Expected Donations (2005-2009): $ 55,000,000.00 $ 1,000,000.00 TOTAL' $56,000,000.00 Consequently, the Community Level of Service (see lC 36-7-4-1301) for existing development is estimated by adding the value of the current park system ($45,875,000.00) to the revenue ($56,000,000) that the community intends to use to raise the Current Level of Service to the Community Level of Service for existing development over the ten-year planning period. The resulting sum, which equals the projected value of the Carmel-Clay Park System for existing development at the end of the ten-year planning period, is $101,875,000.00. ]2 The Community Level of Service per unit of existing residential development in the impact zone is then estimated by taking that projected value and dividing it by the total number of current households. · Value at end of planning period' $101,875,000.00 · Divided by number of current households: 27,624 Estimated Community Level of Service = $3,688 1 unit of existing development Therefore, the estimated Community Level of Service for existing development ($3,688)is approximately the same as the estimated Community Level of Service for new development ($3,665). Pursuant to lC 36-7-4-1318(e), the City is hereby incorporating this Zone Improvement Plan into the City's comprehensive plan and capital improvement plan. Pursuant to lC 36-7-4. 1318(f), the community is hereby adopting the revenue sources that this Zone Improvement Plan specifies will be in effect before the impact fee ordinance becomes effective, and the community further declares that it intends, after the effective date of the impact fee ordinance, to continue to provide adequate funds to defray the cost of raising the Current Level of Service for existing development to the Community Level of Service, using the revenue sources specified in this Zone Improvement Plan or revenue sources other than impact fees. Finally, pursuant to lC 36-7-4-1321(d) and (e), since it is estimated that a typical new home that is built in Clay Township during the ten-year planning period (2005-2014) may pay as much as $158.00 per year from 2007 through 2014 in taxes on account of the Central Park Bond (2004 Issue), and that such payments will be for the purpose of defraying the capital costs of providing park and recreation infrastructure to serve existing development, the City hereby determines that each new unit of residential development should be entitled to "impact deductions" (as defined in lC 36-7-4-1321(d))in the amount of $1,264.00 ($158.00 X 8 - $1,264.00). FEE RECOMMENDATION (revised 5~7~04) As the impact fee will not be the sole source of revenue for parks and recreation improvements, the fee imposed should be reasonable to the extent that existing residents may utilize the new facilities equally with the new residents whom the fee is imposed upon. However, unlike some other communities in Hamilton County, the Carmel-Clay community does not impose road impact fees upon new development and therefore higher but still reasonable park impact fees assessed upon new developments in Clay Township should not be unduly burdensome. With this in mind, it is recommended that the Carmel-Clay Park Impact Fee be set at a maximum of $2,400 per dwelling unit. This maximum fee was arrived at by subtracting the amount of "impact deductions" ($1,264) to which each new unit of residential development is entitled, as described above, from the estimated Community Level of Service ($3,665) for each new unit of residential development, as determined above, and then rounding down to the nearest even number. Comparatively, the City of Noblesville recently increased its impact fee(s), to collect the following Park Impact Fee charges' $973.00 per single family dwelling, 3 bedroom apartment or condo; $924.00 per 2 bedroom apartment or condo; $729.00 per mobile home; and $632.00 per 1 bedroom apartment or condo. Effective March, 2004, Noblesville charges Park and Road Impact Fees as follows for 3 areas: Area 1 (west of the White River): Road Impact Fees of $1,914.00 per dwelling unit which, when added to the highest Park Impact Fee, equals a total impact fee of $2,887.00. Areas 2 & 3 (in Noblesville outside of Area 1)' Road Impact Fees of $1,244.00 per dwelling unit which, when added to the highest Park Impact Fee, equals a total impact fee of $2,219.00. The Town of Fishers collects the following Park Impact Fee charges: $844.00 per single family dwelling; $590.00 per multiple family dwelling (70% of fee). ]4 When added to the park impact fee the average road impact fee of $520.00 for single family dwellings, equals an average total impact fee of $1,364.00 per single family dwelling. The Town of Westfield collects the following Park Impact Fee charges' $206.00 per residence with a September increase to $267.00.