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HomeMy WebLinkAbout1989-08-21 BRAA Ltr to OPH k a ` TAX INCREMENT FINANCING PLAN FOR ST. CROIX MALL TIF PROJECT I. INTRODUCTION Watson Center, Inc. has submitted a Tax Increment Financing (TIF) application to the City of Oak Park Heights, Minnesota f r the expansion of the St. Croix Mall shopping center. e TIF application coincides with a Planned Unit r. Development (PUD) amendment required for the mall expansion which recently received conditional City approval (7/27/89). The mall expansion is to consist of the following: A. A 54,000 square foot two level Herbergers store on the east end of the mall. B. 27,500 square feet of general retail space connecting the Herbergers store to the existing mall. C. 8,600 square feet of convenience retail space on the lower level of the Herbergers store. D. Exterior wall recladding with new entrances, construction of new parking lots, upgrading and redesign of existing parking lots, and additional landscaping. E. Interior renovation with new lighting, air conditioning, skylighting, and storefront renovation as leases are renewed. The Oak Parks Heights Housing and Redevelopment Authority (HRA) proposes to capture the increase in real property taxes on improvement within the following described Tax Increment District as authorized in Sections 469.174 to 469.179 (the TIF Act). The captured increase in taxes is proposed to finance various public improvement projects that will benefit the mall property and surrounding properties within'Planning District 6 (Oak Park Heights Comprehensive Plan, 1979) and Planning District 5 (Oak Park Heights Redevelopment Plan, 1989). The public improvement projects include the following within the Redevelopment Area Planning District No. 5: A. Storm sewer, sanitary sewer and water distribution lines on Omaha Avenue North, Olene Avenue North and 58th Street North. B. Street reconstruction and improvement to Omaha avenue North, Olene Avenue North, and 58th Street North. II. STATEMENT OF OBJECTIVE The actions set forth in this TIF Plan seek to achieve the beneficial program objectives identified in the Oak Park Heights Redevelopment Plan, 1989. Specific Objectives sought to be accomplished by this TIF Plan are: A. Coordinate development activities and promote compatible land uses within each district. B. Enhance the overall economy of the City by retaining current and providing additional employment opportunities within the City. C. Encourage high quality development that will serve to increase the City's tax base. D. Foster cooperative development planning between public and private jurisdictions. III. PUBLIC ACTIVITIES The public improvement projects identified in Section I of this Plan will provide a direct benefit to the St. Croix Mall, its expansion, and the immediate area surrounding the mall (Planning District 5 of the Redevelopment Plan). The projects will benefit these properties through improved transportation facilities, upgraded utility service, and enhanced aesthetics of the resurfaced roadways. Within these improvements, complete street reconstruction will be provided, including concrete curb and gutter as determined in the City's Street Capital Improvement Program, 1987. Sanitary sewer, storm sewer and municipal water facilities will also be upgraded and /or replaced as found necessary. See Exhibit B, Public Improvement Location. The specific street segments as outlined in the Street Capital Improvement Proqram are illustrated in the - table below.' r Ref. No.* Street Seqment 041 Olene Ave. No. South frontage road to 59th Street No. 1 042 Olene Ave. No. 59th Street No. to 58th Street No. 051 Omaha Ave. No. South frontage road to pavement change To7'4i Ce6 j d L ��lsLr� Gl.v. 32-14-, 2 31/2 58th St. No. Osgood Ave. No. to Osman Ave. No. 31/3 58th St. No. Osman Ave. No. to end of cul -de -sac *As found used in Street Capital Improvement Program, 1987. III. TAX INCREMENT FINANCING DISTRICT w PID # Leqal Description Current Owner a �d� 63- 61402 -2150 Lot 1, Block 2 Watson Centers, Inc. St. Croix Mall PUD 2nd Addition 63- 61402 -2200 Lot 2, Block 2 Watson Centers,.Inc. St. Croix Mall PUD 2nd Addition 63- 61402 -2250 Lot 3, Block 2 Watson Centers, Inc. St. Croix Mall PUD 2nd Addition 63- 61402 -2300 Lot 4, Block 2 Watson Centers, Inc. St. Croix Mall PUD 2nd Addition 63- 61402 -2350 Lot 5, Block 2 St. Croix Mall PUD 2nd Addition The St. Croix Mall District is within the Oak Park Heights Redevelopment Area. See Exhibit A, TIF District Boundary Map. IV. STATUTORY AUTHORITY AND DISTRICT ELIGIBILITY AS AN ECONOMIC DEVELOPMENT DISTRICT A. Economic Development District The District is an "Economic Development District" pursuant to Minnesota Statutes, Chapter 469.174, Subdivision 12. That section of the Act defines an economic development district as any project not meeting the requirements found in the definition of redevelopment project or housing project, but which the HRA finds to be in the public interest because: 1. It will result in increased employment in the municipality. 2. It will result in preservation and enhancement of the tax base of the municipality. 3 B. Restricted Uses in Economic Development District The proposed redevelopment is within the Seven County Metropolitan Area. Therefore, Section 469 Subd. 4C applies to this TIF District. The Developer has agreed by the Development Contract that no more than 25% of the buildings and facilities, determined on a square foot basis, will be used for the purposes listed in Section 144 (a) (8) of the Internal Revenue Code of 1986. C. Economic Necessity The proposed development would not be economically feasible without participation of the HRA through the use of tax increment financing. The Developer has provided financial information demonstrating the need for assistance being sought. The Developer has notified the HRA that it would not be economically feasible for the Developer to pay market value for the property and site improvement costs. Therefore, in the opinion of the HRA, the proposed private development would not reasonably be expected to occur solely through private investment within the reasonably foreseeable future and therefore, the HRA elects to use tax increment financing pursuant to the TIF Act to finance part of the project cost. D. Conformance with General Plan 1. Zoning Regulations. The property is zoned B -2, General Business and is appropriately zoned for the proposed development. 2. Comprehensive Plan. The proposed St. Croix Mall expansion is located within Planning District 6 of the Oak Park Heights Comprehensive Plan (1979) and within Planning District 5 of the Oak ark Heights Redevelopment Plan (1989). The Mall expansion is consistent with the planning goals and policies of both Plans. A number of goals and policies from the Comprehensive Plan and the Redevelopment Plan are facilitated with the St. Croix Mall proposal. Among them are: o Planning recommendations for this district are to complete development of the commercial service and entertainment center. 4 o The district should be approached as a planned unit development (PUD) to ensure control and compatibility of development. o The natural break (topography) running parallel to the highway should be used to define the highway oriented businesses from those of a more consumer orientation with the St. Croix Mall acting as the focal point for this entire district. o Further development should be designed to be internally oriented, catering to the pedestrian- shopper, with joint use of facilities. o Franchised architectural styles should be provided to diminish the harshness of the automobile oriented strip development. o Points of access onto the minor arterial Osgood Avenue should be limited. V. FINANCING PLAN A. Budget 1. Private Assistance The Developer's assistance will be provided on a "pay as you go" basis. No bonds will be sold to finance the Developer subsidy. Payments to the Developer will be on an annual basis after receipt of the tax increment from the County Auditor, according to the following schedule: Assistance Available to Taxable - Payable Developer 1991 -92 $ 99,060 1992 -93 100,960 1993 -94 102,896 1994 -95 104,870 1995 -96 106,882 1996 -97 108,932 1997 -98 110,020 1998 -99 113,150 TOTAL $847,770 5 The above amounts are estimated amounts and are subject to change in relation to the actual taxes levied and collected each year. In no event will the amount of funds paid to the Developer exceed the $847,770. The public assistance provided the Developer will be used to write down the land acquisition cost and site improvement costs as detailed in the Development Contract. 2. Public Improvements Estimated TIP Expenditures Street Improvements 155,000"^aJ ¢ �� Public Utilities 233,000 X - TZ4 Administration 50,000 Srger - r Capitalized Interest 106,000 Bond Discount 11,000 Bond Issuance 10,000 SUBTOTAL 565,000 The items of cost and the costs thereof shown above are estimated to be necessary based upon the qualified appraisers, consultants, legal and cost information now available. It is anticipated that the items of cost and the costs thereof shown in each category above may decrease or increase, but that the total project cost will not exceed the amount shown above. The total administrative expense is defined in Minnesota Statutes Section 469.176, Subd. 3 of the TIP Act and is estimated to be $50,000 which amount does not exceed 10% of the total tax increment expenditures. C. Original Tax Capacity Valuation The most recent tax capacity of all the property in the St. Croix Mall TIP which amount is expected to be certified by the Washington County Auditor as the original tax capacity value is $185,366. See Exhibit C, County Auditor's Letter. 6 1989 Tax PID # Current Owner Capacity 63- 61402 -2150 Watson Centers, Inc. 54,656 63- 61402 -2200 Watson Centers, Inc. 77,546 63- 61402 -2250 Watson Centers, Inc. 21,027 63- 61402 -2300 Watson Centers, Inc. 1,276 63- 61402 -2350 Watson Centers, Inc. 7,206 TOTAL $185,366 D. Captured Tax Capacity Value It is estimated that the "Captured Tax Capacity Value" of all taxable property in the Project, upon completion of the development of the Project Area in accordance with this Plan, will be $254,592. Total Estimated Tax Capacity Value at Completion $439,958 - Frozen Base 185,366 Estimated Captured Tax Capacity Value $254,592 E. Tax Increment Calculation 1. Economic Adjustment Factor Economic Development TIF projects require that the original tax capacity value be adjusted annually by the average percent increase in tax capacity valuation during the previous five years. The County Assessor has determined that the annual factor will be 1.0191. The following table demonstrates the impact of increasing the frozen base of $185,316 by 1.0191 compounded annually. The total tax increment decreases annually as.shown in the final column. 7 Tax Capacity (1) (2) (3) Tax Year Base Complete Increase Increment 0 1988 -89 185,316 1 1989 -90 188,853 2 1990 -91 192,460 3 1991 -92 196,136 439,958 243,822 224,391 4 1992 -93 199,822 439,958 240,136 220,999 5 1993 -94 203,700 439,958 236,258 217,431 6 1994 -95 207,591 439,958 232,367 213,550 7 1995 -96 211,556 439,958 228,402 210,200 8 1996 -97 215,596 439,958 224,362 206,483 9 1997 -98 219,714 439,958 220,244 202,693 10 1998 -99 223,911 439,958 216,047 198,830 F. Debt Service Analysis Exhibit is a cash flow analysis, prepared on an annual basis for the retirement of the proposed bonds. The following assumptions are an integral part of that analysis: Debt Service Analysis Assumptions 1. The effective annual interest rate is 2. Ten year bonds will be sold with an eight year principal repayment. 3. The annual tax increment as computed at a tax capacity rate of 92.031. 4. The annual tax increment will remain constant during the period bonds are outstanding. 5. Invested surplus funds will earn at least 5%. G. Excess Tax Increments The tax increments received from the District in any year not needed to pay debt obligations of the City, shall be used first to reduce any ad valorem property tax levied pursuant to and in accordance with Minnesota Statutes, Section 475.61, Subd. 3. The HRA shall then use excess tax increments, if any, in the following manner: 1. Pay into an escrow account dedicated to payment of the Bonds. 8 2. Prepay any outstanding Bonds or Developer commitments. 3. Provide funds for the future redevelopment project efforts within Oak Park Heights Redevelopment Area. 4. Discharge the pledge of tax increments. 5. Return the excess amount to the County Auditor who shall distribute the excess amount to the municipality, county and school district in which the tax increment financing district is located, in direct proportion to their respective mill rates. H. Duration of the District It is estimated that the District will remain in existence until December 31, 1999, or until the City's obligation to pay the debt has been discharged in accordance with the resolution authorizing the issuance of the debt. In no event will the TIF District exist more than eight years from the receipt of the first increment, which is expected to be in 1991. It is estimated that the tax increment financing district, including any modifications or changes, will terminate December 31, 1999. I. Election as to Increment The HRA finds it necessary to receive 100% of the captured Assessed Value, to produce sufficient tax increments to fund project expenses in least amount of time. J. Fiscal Disparities The City elects the method of tax increment computation set forth in Section 469.177, Subd. 3, clause a. The contribution ratio of the municipality is not applied to commercial - industrial property inside a tax increment district, but the contribution these properties would otherwise make would be spread on commercial - industrial properties outside the district. Therefore, the total amount of captured tax capacity is available for tax increment debt retirement. 9 K. Estimated Impact on Other Tax Jurisdictions The taxing jurisdiction within which the District is located will continue to receive taxes as if no new development were to occur with the current assessed valuation neither increasing nor decreasing. The HRA will receive all taxes derived from the increased tax capacity valuation above the frozen base. This precludes the jurisdictions from receiving tax increases due to the Project, inflation or other development of the taxable property in the District. As the Exhibit D indicated, this property comprises a very small portion of the tax capacity value of these jurisdictions. The tax capacity value of the taxable property within the District will be frozen at its original tax capacity value through 1999. At that point, the taxing jurisdictions will begin to receive taxes on the full tax capacity value of the property. The amount each jurisdiction will receive annually during the period Bonds are outstanding will vary with changes in the tax capacity rate. Exhibit D further describes the impact the proposed project will have on the taxing jurisdictions. VI. TAX INCREMENT FINANCING REQUIREMENTS A. Limitation on Administrative Expenses In accordance with Minnesota Statutes, Section 469.174, Subd. 14 and Minnesota Statutes, Section 469.176, Subd. 3, administrative expenses means all expenditures of an Authority other than amounts paid for the purchase of land or amounts paid to contractors and engineering services, directly connected with the physical development of the real property in the district, relocation benefits paid to or services provided for persons residing or business located in the district or amounts used to pay interest on, fund a reserve for, or sell at a discount bonds issued pursuant to Section 469.178. Administrative expenses include amounts paid for services provided by bond counsel, fiscal consultants, and planning for economic development consultants. No tax increment shall be used to pay any administrative expenses for a project which exceeds ten percent of the total tax increment expenditures authorized by the tax increment financing plan or the total tax increment expenditures for the project, whichever is less. 10 B. Project Administration and Maintenance of Tax Increment Account Administration of the tax increment financing economic development district will be handled by the Office of the City Administrator. The tax increment received as a result of increases in the assessed value of the tax increment financing district will be maintained in a special account separate from all other municipal accounts and expended only upon sanctioned municipal activities identified in the financing plan. C. Limitation on Duration of Tax Increment Financing Districts Pursuant to Minnesota Statutes Section 469.176, Subd. 1, "no tax increment shall be paid to an authority three years from the date of certification by the County Auditor unless within the three year period (1) bonds have been issued pursuant to Section 469.178 or in aid of a project pursuant to any other law, except revenue bonds issued pursuant to Chapter 474, prior to the effective date of the Act; or 2) the City has acquired property within the district; or (3) the City has constructed or caused to be constructed public improvements within the district..." The City may therefore issue bonds, or acquire property, or construct or cause public improvements to be constructed by 1993 or the office of the County Auditor may dissolve the tax increment financing district. D. Limitation on Qualification of Property Tax Increment District Not Subject to Improvement Pursuant to Minnesota Statutes, Section 469.176, Subd. 6 0 , " if, after four years from the date of certification of the original assessed value of the tax increment financing district..., no demolition, rehabilitation or renovation of parcel or other site properties including improvement of a street adjacent to a property but not installation of utility service including sewer or water systems, has been commenced on a parcel located within the tax increment financing district by the Authority or by the owner of the parcel in accordance with the tax increment financing plan, no additional tax increment may be taken from the parcel and the original assessed value of that parcel shall be excluded from the original assessed value of the tax increment financing district. If the Authority or the owner of the parcel subsequently commences demolition, rehabilitation or renovation or other site preparation 11 on that parcel including improvement of a street adjacent to that parcel, in accordance with the tax increment financing plan, the Authority shall certify to the County Auditor in the annual disclosure report that the activity has commenced. The County Auditor shall certify the assessed value thereof as most recently certified by the Commissioner of Revenue and add it to the original assessed value of the tax increment financing district. E. Limitation on the Use of Tax Increment All revenues derived from tax increment shall be used in accordance with the tax increment financing plan. The revenues shall be used to finance or otherwise pay public redevelopment costs pursuant to Minnesota Statutes, Sections 469.124 to 469.134. These revenues shall not be used to circumvent existing levy limit law. No revenues derived from tax increment shall be used for the acquisition, construction, renovation, operation, or maintenance of a building to be used primarily and regularly for conducting the business of a municipality, county, school district, or any other local unit of government or the State or Federal government. This provision shall not prohibit the use of revenues derived from tax increments for the construction or renovation of a parking structure, a common area used as a public park or a facility used for social, recreational or conference purposes and not primarily for conducting the business of the municipality. F. County Costs 1. Tax increments may be used to pay for the county's actual administrative expenses under Sections 469.174 to 469.179. The County may require payment of those expenses by February 15 of the year after the year in which the expenses are incurred. The amount of these payments is not required to be set forth in the tax increment financing plan for the project. To obtain payment for actual administrative costs, the County Auditor must submit to the authority a record of costs incurred by the County Auditor related to administration of the authority's tax increment financing districts. 2. Tax increments may be used to pay county road costs as provided in Section 469.175, Subdivision 1(a). 12 G. Annual Disclosure Requirements Pursuant to Minnesota Statutes, Section 469.175, Subd. 6, an Authority must file an annual disclosure report for all tax increment financing districts. The report shall be filed with the School Board, County Board and the State Auditor's Office. The report shall include the following information: 1. The original tax capacity value of the district; 2. The captured tax capacity value of the district, including the amount of any captured tax capacity value shared with other taxing districts; 3. The outstanding principal amount of bonds issued or other loans incurred to finance project costs in the district; 4. For the reporting period and for the duration of the district, the amount budgeted under the tax increment financing plan, and the actual amount expended for, at least, the following categories: a. Acquisition of land and buildings through condemnation or purchase; b. Site improvements or preparation costs; C. Installation of public utilities or other public improvements; d. Administrative costs, including the allocated cost of the authority; 5. For properties sold to developers, the total cost of the property to the Authority and the price paid by the Developer; 6. The amount of tax exempt obligations, other than those reported under clause (3), that were issued on behalf of private entities for facilities located in the district. The annual disclosure report is designed to be a two - way medium of information dissemination for both the office of the County Auditor and the City. Should the Auditor want additional activities, such information should be requested prior to submission of the annual disclosure report by the City. Similarly, the City Council may utilize the annual disclosure report as a 13 means for requesting information from the office of the County Auditor. H. Modifications of the Tax Increment Financing District In accordance with Minnesota Statutes, Section 469.175, Subd. 4, any reduction or enlargement of the geographic area of the Project or tax increment financing district, increase in amount of bonded indebtedness to be incurred, including a determination or capitalized interest on debt of that determination as not part of the original plan, or to increase or decrease the amount of interest on the debt to be capitalized, increase in the portion of the captured assessed value to be retained by the City, increase in total estimated tax increment expenditures or designation of additional property to be acquired by the City shall be approved upon the notice and after the discussion, public hearing and findings required for approval of the original plan. The geographic area of a tax increment financing district may be reduced, but shall not be enlarged after five years following the date of certification of the original assessed value by the County Auditor. The tax increment financing redevelopment district may therefore be expanded until 1995. 14 JnR N STATE- HWY — �-8ADUENZ 210, r �2, ZI 2 3 '>O 0 A D _10 4' 37 7/ 4 ; 5 0 3,56 31!.4 i 2050 z 0,' " ,1 2 0 59— 57 Q 00 Is 11 152 ' 2 0 L —W 11 1 4 00 7 2 3 7 3800 3750 _j _LJ 0 X A' ST C O -1 D5�, O 35 5 14 2 3 0 7, 2350 6 '�� . nf..A * z U0 , ST CROIX 9 0 0 7v (D RA YMIE JOHNSON t_ �79 0 G 69TH i AT N oo F O O 3 N. G ST 10 k:, z urw G VIE A 9D. 0 I C 5 CA, % ST z N. 5 '3 2 This map is for planning purposes only and should not be used when precise measurements are requi ak EXHIBIT A TIF DISTRICT BOUNDARY MAP North 11.88 - c. I. g. ark O D LLJ TIF District northwest Planning District 5 associated ight.r consultants, inc. minnefota N 1/4 C,R N SJFAT HA 36 --T 4 1 D RA �UENZ ,e 2100 "1 4C-� P - I - 11 1 2 3 0 37DO 2) 31 4 2050 aa 2 /00 4�00 2220 22K 7 /�51 3 -W V6 2200 :L 2300 00) 2350 6 T S L L RU T CROIX D. TIF P,"ktric 3 � 0 P` 4 2 go- 6 F, A YlyflE JOHNSON ES 0 H S G b 0 lb W 01 . . . . . . . . . . V V, jr 5 ST N E 5 This map is for planning purposes �' = %` �: I , only and should not be used when 0.- precise measurements are required. a North EXHIBIT B ,,.88 - c. 1. g. ark Public improvement project locations northwest associated ightr consultant,, Inc. minnefota GTON J. Scott Renne, MAI, CAE y�'� • c WASHINGTON COUNTY County Assessor 3e• 2� 779 -5136 ASSESSOR'S OFFICE Dennis Montague, CMA m =' Assistant County Assessor GOVERNMENT CENTER 779.5137 "ousrer- ,eue�ts' 14900 61ST STREET NORTH, PO. BOX 6 • STILLWATER, MINNESOTA 55082.0006 612/779.5403 Judith M. Ellis, CMA Fax machine: 612/779 -5498 Administrative Technician 779.5465 July 5, 1989 Brad Henning Watson Centers Inc. 252 South Plaza Building 1433 Utica Ave. So. Minneapolis, MN 55416 -1595 Subject: St. Croix Mall Dear Brad, I have reviewed the plans and financial information that you provided regarding the St. Croix Mall. The addition and renovation of the Mall will, when complete, have the following effect on the total valuation: - addition, $4,607,000 - interior and exterior renovation, $400,000 - total, $5,007,000 From looking at your average annual rate of inflation from 1984 to 1988, it appears that you are using a five year (rather than four year) period with compounded interest. In addition, your estimate of the land value on Lot 6, Block 2, is slightly off. Using the 1988 market values, with an adjustment for the K -Mart improvements on Lot 6, Block 2 (land value only for 1988 is $67,200). The total adjuste& valuation for 1988 is $3,617,800. The base value for January 2, 1983 is $3,290,700. Calculating the inflation rate using an HP -12C, and using a compounding period of five years from 1983 to 1988, a compounded inflation rate of 1.91% is determined. If you have any further questions, please feel free to call me at 779 -5136. Sincerely, 2 sc, J. Scott Renne, MAI. Washington County Assessor cc: LaVonne Wilson Washington County does not discriminate on the basis of race, color, national origin, EXHIBIT C sex, religion, age and handicapped status in employment or the provision of services. EXHIBIT D IMPACT ON TAXING JURISDICTION TIF DISTRICT ST. CROIX MALL OAK PARK HEIGHTS 1988 -1989 TIF District* Increased Percent of Total Total Tax Base Tax Tax Tax Capacity Capacity Capacity Capacity Increase Value Available Jurisdiction Valuation Valuation % of Total Valuation % of Total For Normal Growth City of Oak Park • Heights 6,823,398 185,366 2.716 253,439 3.581 96.41 School District #834 39,553,310 185,366 .493 253,439 .670 99.33 Washington County 113,976,709 185,366 .162 253,439 .222 99.77 School District #916 322,328,649 185,366 .057 253,439 .078 99.92 TAX CAPACITY RATE IMPACT 233,242 ANNUAL TAX INCREMENT ** Distribution 1988 -1989 Tax Increment Tax % of Total To Individual Tax Capacity Rate Jurisdiction Capacity Rate Tax Capacity Jurisdiction Impact of TIF City of Oak Park Heights 13.781 14.97 _34 .512 School District #834 49.666 53.96 125,857 .335 Washington County 23.030 25.02 58,357 .051 School District #916 1.605 1.74 4,058 .001 Other 3.949 4.29 10,006 92.031 100.00 233,242 *Base increases annually at rate of 1.91 * *Assumes development would have occurred without assistance being sought.