Resolution - 2023 - 23-12 - Adopting An Updated Parks Development Impact Fee Study & Parks Capital Improvements Plan Dated April 2023, Adopting A Revised Park Impact Fee - 05/24/2023 RESOLUTION NO. 23-12
A RESOLUTION OF THE CITY OF EAGLE,IDAHO,ADOPTING AN UPDATED PARKS
DEVELOPMENT IMPACT FEE STUDY & PARKS CAPITAL IMPROVEMENTS PLAN
DATED APRIL 2023,ADOPTING A REVISED PARK IMPACT FEE; AND PROVIDING
AN EFFECTIVE DATE.
WHEREAS,the City of Eagle is a municipal corporation operating under the laws of the
state of Idaho; and
WHEREAS, Idaho Code § 67-8208 requires a governmental entity imposing a
development impact fee to update its capital improvements plan at least once every five years in
accordance with the procedures set forth in Idaho Code § 67-8206; and
WHEREAS,the City of Eagle previously adopted a parks capital improvements plan (the
"Plan") pursuant to Idaho Code Title 67, Chapter 82, in 2017, which identified capital
improvements for which development impact fees may be used as a funding source; and
WHEREAS, the City of Eagle has determined that the Plan should be reviewed, revised,
and updated in order to remain current with the cost of land and construction within the City; and
WHEREAS,the City of Eagle,and its consultants,have analyzed growth and development
projections and the City' s levels of service in order to update the Plan; and
WHEREAS,the City of Eagle Development Impact Fee Advisory Committee has assisted
the City in analyzing, monitoring, and revising land use assumptions and the implementation of
the capital improvements, advised the City Council as to necessary revisions to the City' s capital
improvements plan and impact fee study, and has reviewed the draft revisions as set forth in
Exhibit A attached hereto and incorporated herein by reference; and
WHEREAS,the City of Eagle held a public hearing, which was duly noticed pursuant to
Idaho Code § 67- 8206, for the purpose of taking public comment on the proposed amendment to
the City of Eagle Development Impact Fee Study" entitled"Park Development Impact Fee Capital
Improvements Plan" dated March 2017, hereinafter referred to as the " Park Study;" and
WHEREAS,the Study and its updates/amendments contain the following information:
a) A general description of all existing public parks facilities acknowledging the City' s
satisfactory level of service within the City;
b) A commitment by the City to use all available sources of revenue to maintain the
adopted level of service where practical;
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c) An analysis of the total capacity, the level of current usage, and commitments for
usage of capacity of existing capital improvements,which was prepared by a qualified
professional planner or by a qualified engineer licensed to perform engineering
services in this state;
d) A description of the land use assumptions by the City;
e) A definitive table establishing the specific level or quantity of use, consumption,
generation or discharge of a service unit for each category of system improvements
and an equivalency or conversion table establishing the ratio of a service unit to
various types of land uses;
f) A description of all system improvements and their costs necessitated by and
attributable to new development in the service area based on the approved land use
assumptions,to provide a level of service not to exceed the level of service adopted in
the development impact fee ordinance;
g) The total number of additional park acreage necessitated by and attributable to new
development within the service area based on the approved land use assumptions and
calculated in accordance with generally accepted engineering or planning criteria;
h) The projected demand for system improvements required by projected population
growth over a reasonable period of time not to exceed ten (10) years;
i) Identification of all sources and levels of funding available to the City for the financing
of the system improvements; and
j) A schedule setting forth a priority schedule for completion of improvements identified
in the capital improvements plan; and
WHEREAS, the City Council, after careful consideration, hereby finds and declares that
an impact fee imposed upon residential development to finance parks and pathways, the demand
for which is created by such development,continues to be in the best interest of the general welfare
of the City and its residents, is equitable, does not impose an unfair burden on such development
by forcing developers and builders to pay more than their fair share or proportionate share of the
cost,and therefore deems it advisable to adopt the updated and revised impact fee study and capital
improvements plan.
NOW, THEREFORE, BE IT RESOLVED BY THE MAYOR AND COUNCIL OF THE
CITY OF EAGLE, IDAHO that the "Updated Parks Development Impact Fee Study and Parks
Capital Improvement Plan"dated April 2023,attached hereto as Exhibit A and incorporated herein
by this reference, is hereby adopted by the City. With an effective date of June 13, 2023.
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PASSED AND ADOPTED by the Council of the City of Eagle, this theM day of May, 2023.
ikon fierce
Mayor, City of Eagle
ATTES �'•'Cti ••:•��d':
AyE. Osvity
City Clerk, f Eagle
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32 N Main Street PO Box 235 Payette, ID 83661
208 642 3304 info@hecoengineers.com
City of Eagle, Idaho
2023 Update
Park Development Impact Fee
Capital Improvement Plan
City of Eagle – Park Impact Fee
2023 Update
HECO Engineers i EG 22-0418
TABLE OF CONTENTS
1.0 EXECUTIVE SUMMARY ........................................................................................................ 1
2.0 SCOPE/ANALYSIS ................................................................................................................. 2
2.1 Park Development Costs ............................................................................................ 2
2.2 Land Value .................................................................................................................. 4
2.3 Existing City Parks ...................................................................................................... 5
2.4 Projected Growth/Required New Developed Parks .................................................. 5
2.5 Impact Fee Calculation ............................................................................................... 6
2.6 Proposed Capital Improvement Plan ......................................................................... 8
3.0 SUMMARY/RECOMMENDATIONS ...................................................................................... 9
LIST OF TABLES
Table 1. Park Category Descriptions ..................................................................................... 3
Table 2. Park Development Costs, Less Land Costs .............................................................. 4
Table 3. Representative Appraisals ...................................................................................... 4
Table 4. Park Growth Projections ......................................................................................... 6
Table 5. Impact Fee Calculation ............................................................................................ 7
Table 6. Proposed Capital Improvement Plan ...................................................................... 8
LIST OF APPENDICES
APPENDIX A Existing Park Inventory and Value
City of Eagle – Park Impact Fee
2023 Update
HECO Engineers pg. 1 EG 22-0418
1.0 EXECUTIVE SUMMARY
The Idaho Development Impact Fee Act in Idaho Code, Title 67, Chapter 82, requires capital
improvement plans upon which impact fee systems are based be updated every five years. This
update represents the fourth amendment of the City of Eagle’s Development Impact Fee
Study/Capital Improvements Plan dated May 11, 1999. The City of Eagle last completed an
updated Development Impact Fee & Capital Improvement Plan in 2017 (2017 Study). This update
presents the review of the costs of park development and land values included in the 2017 Study
as well as a review of the City’s existing parks.
The City has actively continued to develop park areas and acquire land for future park
development. Since the 2017 Study, the City has developed parks that included a portion of the
Pamela Baker Park, a Dog Park, developed a use of the previous planned/unused Velodrome
area, and Linder River Access Park. The City has also acquired undeveloped land in anticipation
of future park development. With these changes, the City currently has 112.22 acres of
developed parks and 731.88 acres of undeveloped acreage. At a required level of service (LOS)
of 3.3 acres of developed park per 1,000 people adopted in 1999, the City has a surplus of 0.15
acres of developed park acreage to serve the current population of 33,960.
Park development costs have increased approximately 43% since the 2017 Study based on the
increase in the Construction Cost Index. This increase was directly applied to the 2017 Study park
development costs to obtain the current average development costs for various park categories.
Land values used to determine the value of the City’s park properties are difficult to estimate
given the influences of development speculation and the housing market . To be conservative in
estimating land values, available appraisals on properties not influenced by development
speculation were relied upon for this update. Based on those appraisals, land values of $42,000
per acre for irrigated property and $7,500 per acre for dry foothill property were used in this
update.
Using the current park development costs, the value of the existing undeveloped acreage owned
by the City, the land values costs, and the current developed park acreage, the average value for
developed parks is $238,400. To maintain the LOS, approximately 61.82 acres of developed park
will be needed over the next 10-year period after adjusting for the surplus. With the average
value for developed parks and the needed acreage, an increase in the park impact fee is justified.
The proposed Park Impact Fee is calculated to be $2,080 per dwelling unit.
City of Eagle – Park Impact Fee
2023 Update
HECO Engineers pg. 2 EG 22-0418
2.0 SCOPE/ANALYSIS
The intent of this update was to do a limited review of the park elements of the previous study
with a simplified approach to determin e a more representative Park Impact Fee accounting for
changes in development costs, land values, and park development. This update does not review
or revise the Pathway Impact Fee presented in the 2017 Study pending further pathway/trailway
planning by the City. Map elements presented in the 2017 Study were not revised for this update.
The specific tasks for this update included the following:
1. Review of park development costs for the six park categories presented in Figure 6 of the
2017 Study based on the increase of the Construction Cost Index.
2. Review of land values based on appraisals recently completed in the Spring Valley
Development (Valnova).
3. Review of the City’s existing developed park acreage and the current value of the City’s
park system.
4. Estimate of the current and future required acreage of developed parks based on existing
and projected population to maintain the level of service.
5. Determine updated Park Impact Fee.
6. Update the Capital Improvement Plan (Figure 8 of the 2017 Study) to identify impact fee
eligible projects.
2.1 Park Development Costs
The 2017 Study provided park development costs for six different park categories. The park
categories were not described in the 2017 Study, but they are characterized in Table 1.
City of Eagle – Park Impact Fee
2023 Update
HECO Engineers pg. 3 EG 22-0418
Table 1. Park Category Descriptions
Cost Designation Typical Development
A – Foothills Park Development Non-Irrigated, Natural Parks Located in the Foothills;
May include established nature trails
B – Nature Park Development Non-Irrigated, Natural Areas Located in Floodways;
May include nature trails
C – Lower Cost Development Sports Fields, Trails, Grass Play and Picnic Area
D – Moderate Cost Development Add to Designation C: Restroom, Covered Picnic Area,
Paved Walks, Structures, Concession Area
E – Higher Cost Development Add to Designation D: Playground and Exercise
Equipment, Water Feature, Sports Courts
F – Special Use Amenities Add to Designation E: Gazebo, Velodrome,
Amphitheater, Seating
Each category has an estimated average development cost per acre based on the costs for the
various amenities noted. The average development costs per acre (2016 dollars) presented in
2017 Study were adjusted to current development costs by using the Construction Cost Index
(CCI) established in the construction cost estimating software, RSMeans. The ratio of the CCI
values was used to calculate the current cost as follows:
𝐶𝑟𝑟𝑟𝑒𝑛𝑟 𝐶𝑛𝑟𝑟= 𝐶𝐶𝐼𝐶𝑡𝑟𝑟𝑒𝑛𝑡
𝐶𝐶𝐼2016
𝑥 𝐶𝑛𝑟𝑟2016
The CCI in 2016 was 191.1 and the CCI estimated for January 2023 is 273. A ratio of the indexes
creates a multiplier ratio of 1.43. Multiplying the costs in 2016 (Figure 6 of the 2017 Study) by
this ratio results in the current development costs shown in Table 2 below.
City of Eagle – Park Impact Fee
2023 Update
HECO Engineers pg. 4 EG 22-0418
Table 2. Park Development Costs, Less Land Costs
Park Description by Cost Current Development
Cost/Acre
Foothills Park Development $14,500
Nature Park Development $23,000
Lower Cost Development $164,500
Moderate Cost Development $180,500
Higher Cost Development $248,500
Special Use Amenities $447,000
Note: Costs are rounded to nearest $500
2.2 Land Value
To update the costs of land used in the impact fee analysis, appraisals completed in
November/December 2022 within the Spring Valley Development (Valnova) were referenced to
determine a cost/acre to use as a basis to determine the overall park land values. It is understood
that property size can significantly influence the actual cost/acre, however, for this update a
single representative value was used for the land value. The final appraisals represent different
size parcels and differing characteristics. The representative appraisals referenced for this up date
are shown in Table 3 below.
Table 3. Representative Appraisals
Property Acreage Value Value/Acre
TBD N. Highway 16
Irrigated Land 28.44 $1,195,000 $42,000
TBD Willow Creek
Foothills – Parcel 1 283.04 $2,970,000 $10,500
TBD Willow Creek
Foothills – Parcel 2 320.00 $2,400,000 $7,500
Based on these appraisals, irrigated land was valued at $42,000 and dry foothill land was valued
at the more conservative value of $7,500. For this analysis, the value of the dry foothill land was
also used for the value of floodway land. The $7,500 per acre value is consistent with the value
used in the 2017 Study.
City of Eagle – Park Impact Fee
2023 Update
HECO Engineers pg. 5 EG 22-0418
It should be noted that land value used in the City of Boise Development Impact Fee Study
completed in February 2022, was estimated at $250,000 per acre. Given the high volatility of land
sales in the valley driven by development speculation, it is difficult to predict the value of land.
Therefore, rather than speculate on possible higher land values, a conservative approach to use
the values presented in the appraisals, which are based on the sales of comparable properties,
was deemed appropriate for this analysis. To refine the land value used in this update, a more in-
depth analysis would be necessary to identify specific parcels of property and evaluate each for
development potential which is beyond the scope of this update. In addition, the City has
historically collaborated with developers to identify and acquire potential park property.
2.3 Existing City Parks
Since the 2017 Study, additional park lands have been developed by the City and undeveloped
properties have been acquired increasing the City’s value of the current park assets. Appendix A
summarizes the City’s existing parks and the associated land and improvement values.
The City currently has 731.88 acres of undeveloped park property and 112.22 acres of developed
parks. The land value of the existing park lands (developed and undeveloped) is $11,471,250 and
the improvement value is estimated to be $15,283,320 for a total current value of parks of
$26,754,570. It should be noted that the land values of the undeveloped parks currently owned
by the City were included in determining the current asset value of the City’s park system.
With a current total asset value of parks of $26,754,570 and 112.22 acres of developed parks,
the per acre value of the City’s existing parks is $238,400.
The estimated current population of the City is 33,960. The level of service adopted by the City is
3.3 acres per 1,000 people which requires 112.07 acres for a population of 33,960. When
compared to City’s current 112.22 acres of developed park area, the City has successfully
maintained the adopted level of service with a surplus of only 0.15 acres.
2.4 Projected Growth/Required New Developed Parks
A planning horizon of 10 years was considered in the 2017 Study and is also used as the planning
period for this update. The population growth over the next 10 -year period is expected to be at
a rate of 4.5%, based on the City’s Comprehensive Plan. With this expected growth rate, it is
estimated that the population in 2032 will be 52,738 people (an increase of 18,778 peopl e). To
City of Eagle – Park Impact Fee
2023 Update
HECO Engineers pg. 6 EG 22-0418
maintain the same level of service of 3.3 acres per 1 ,000 people, the City will need to develop
approximately 61.97 acres of new parks over the 10-year period. Adjusting for the very small
surplus of 0.15 acres, a net new park acreage will need to be 61.82 by the year 2032. With a park
value of $238,400 per acre, the average total cost to develop 61.82 acres of park is $14,737,888.
See Table 4 below for summary of the growth projections and the new park area requirements,
noting that development of parks does not typically follow the annual incremental development
shown.
Table 4. Park Growth Projections
Year Population Park Acres
Required
New Park
Acres
Development
Costs
2022 33,960 112.07
2023 35,488 117.11 5.04 $1,201,536
2024 37,085 122.38 5.27 $1,256,368
2025 38,754 127.89 5.51 $1,313,584
2026 40,498 133.64 5.75 $1,370,800
2027 42,320 139.66 6.02 $1,435,168
2028 44,224 145.94 6.28 $1,497,152
2029 46,214 152.51 6.57 $1,566,288
2030 48,294 159.37 6.86 $1,635,424
2031 50,467 166.54 7.17 $1,709,328
2032 52,738 174.04 7.50 $1,788,000
Totals 61.97 $14,773,648
Less Surplus 0.15 $35,760
Net Totals 61.82 $14,737,888
2.5 Impact Fee Calculation
The funds to develop the 61.82 acres of new parks will be collected from impact fees charged to
new development since these costs will be entirely growth related to maintain the level of
service. The costs for the development of the new park acreage in the amount of $14,737,888 is
City of Eagle – Park Impact Fee
2023 Update
HECO Engineers pg. 7 EG 22-0418
to be collected from the anticipated growth increase of 18,779 people. To collect on a residential
unit basis, a typical household size of 2.65 people, based on the 2020 census, was used to
establish the residential unit impact fee.
The Impact Fee calculation is detailed in Table 5.
Table 5. Impact Fee Calculation
Park Impact Fee
Population (2032) 52,738
Population (2022) 33,960
Population Increase (2023-2032) 18,778
New Developed Park Acreage Required
(to meet Level of Service = 3.3 acres/1000 people)
61.97
Less Existing Surplus Acreage of Developed Parks 0.15
Net Acreage of New Developed Parks 61.82
Value of Existing Parks per Acre $238,400
New Park Costs
𝑵𝒄𝒘 𝑷𝒂𝒓𝒌 𝑪𝒐𝒓𝒓𝒓=𝟎𝟎.𝟎𝟎 𝑨𝒄𝒓𝒄𝒓 𝒘 $𝟎𝟎𝟎,𝟎𝟎𝟎
$14,737,888
Impact Fee per Capita
𝑯𝑭𝑪𝑨𝑷=$𝟎𝟎,𝟎𝟎𝟎,𝟎𝟎𝟎
𝟎𝟎,𝟎𝟎𝟎 𝑷𝒄𝒐𝒐𝒌𝒄
$784.82
Impact Fee per Residential Unit (rounded to nearest $1)
𝑯𝑭=$𝟎𝟎𝟎.𝟎𝟎 𝒘 𝟎.𝟎𝟎 𝑷𝒄𝒐𝒐𝒌𝒄/𝑯𝒐𝒓𝒓𝒄𝒉𝒐𝒌𝒄
$2,080
It should be noted that adjustments in the estimated growth rate will not significantly change the
impact fee collected to maintain the level of service. If the project growth rate doesn’t occur at
the level anticipated, the required new park acreage would reduce accordingly. By using an
approach that uses the average value of existing parks as the basis for the impact fee, the
projected growth rate is not a significant factor in the amount of the fee.
City of Eagle – Park Impact Fee
2023 Update
HECO Engineers pg. 8 EG 22-0418
2.6 Proposed Capital Improvement Plan
Using the above adjusted average costs and updated land values along with the removal of the
parks developed since the 2017 Study, the Capital Improvement Plan (CIP) shown in Figure 8 of
the 2017 Study is revised and presented in Table 6 below. The CIP identifies projects that are
impact fee eligible. All projects are 100% growth related except for the Maintenance Facility
which must be funded using a proportionate share basis.
Table 6. Proposed Capital Improvement Plan
2023-2032 Proposed Capital Improvement Plan
Park Area Description Acres Land Value Improvement
Value
Total CIP
Value
Pamela Baker Park (Undeveloped) 18.35 City Owned $3,018,575 $3,018,575
Charlie Wood Park 12.84 City Owned $2,112,180 $2,112,180
Shooting Sports Park 84.0 City Owned $20,874,000 $20,874,000
Foothills Park (Spring Valley) 519.04 City Owned $7,526,080 $7,526,080
West Park Place (Terra View) 21.2 In Negotiations $3,487,400 $3,487,400
Mace Park 3.2 City Owned $577,600 $577,600
Eagle Regional Sports Complex (Spring Valley) 94.45 City Owned $23,470,825 $23,470,825
Eastside River Access Park 1.0 $7,500 $164,500 $172,000
Maintenance Facility (1) City Owned $572,000 $572,000
Impact Fee Studies TBD
Total Amount of CIP Improvements $61,810,660
(1) Note: Maintenance Facility must be funded using Proportionate Share criteria.
Proportionate Share in IF
Population Increase: 18,778
Projected Population: 52,738
Proportionate Share in IF: 35.6%
City of Eagle – Park Impact Fee
2023 Update
HECO Engineers pg. 9 EG 22-0418
3.0 SUMMARY/RECOMMENDATIONS
❖ Updated Impact Fee
Impact Fee $ Per Residential Unit
Park Impact Fee $2,080.00
Pathway Impact Fee (No Change) $330.50
Total Impact Fee $2,410.50
❖ Impact Fee History
Impact Fee History Parks Pathway Total Impact Fee
Initial Hofman Study, 1999 $545.69 $0.00 $545.69
2004 Update $1,752.14 $0.00 $1,752.14
2011 Update $1,314.29 $0.00 $1,314.29
2017 Update $1,115.72 $330.50 $1,446.22
2023 Update $2,080.00 $330.50 $2,410.50
❖ Given that this is the fourth update to the initial study completed in 1999, it is recommended
that the City undertake a new impact fee study after the review and planning of the City’s
pathways/trailways is completed. The new study should review the actual costs of specific
amenities within each park rather than continued adjustments using construction cost
indexes and should review the pathway impact fee as it relates to any newly adopted
pathway/trailway plan. Currently, the pathway impact fee only applies to improvements
planned to the City’s greenbelt system along the Boise River.
❖ The City should review and amend the Capital Improvement Plan on an annual basis to better
align with the City’s planned improvements and budgeting process. The review and
amendment of the CIP should be completed through the Development Impact Fee Advisory
Committee and adopted by the City Council.
❖ The City should update the Impact Fee Study at least every five-years.
City of Eagle – Park Impact Fee
2023 Update
HECO Engineers Appendix A EG 22-0418
APPENDIX A
EXISTING PARK INVENTORY AND VALUE
Appendix A - Existing Park Inventory and Value
Value of Existing Parks (by applying Land and Improvement Costs)
Breakdown of existing parks Acreage Land Value A B C D E F
Undeveloped Parks (Land Value Only)
Mace Park (Undeveloped)3.20 $24,000
Pamela Baker Park (Undeveloped)18.35 $770,700
Charlie Wood Park (Undeveloped)12.84 $96,300
Eagle Regional Sports Park (Spring Valley)94.45 $3,966,900
Shooting Sports Park/Foothills Park (Spring Valley)603.04 $4,522,800
Total Undeveloped Acres Owned 731.88
Developed Parks
Friendship Park 1.30 $54,600 $234,650
Arboretum Park 0.51 $21,420 $83,895
Plaza Drive Park 2.70 $113,400 $444,150
Orval Krasen Park 2.42 $101,640 $436,810
Heritage Park (1)0.48 $20,160 $1,250,000
Guerber Park 15.20 $638,400 $6,794,400
Reid Merrill Park 8.92 $374,640 $2,216,620
River Access Linder 3.02 $22,650 $369,460
Pamela Baker Park 4.67 $196,140 $842,935
Riverside Wildlife Park (Merrill)9.60 $72,000 $220,800
Eagle Sports Complex
Skate Board Park 5.05 $37,875 $911,525
BMX Track (south)(2)6.00 $45,000 $387,000
Bike Downhill Skills Course 10.10 $75,750 $146,450
Reservoir Site (outside fence)2.64 $19,800 $38,280
Hell Mary Trail Parcel 4.51 $33,825 $65,395
Low Rider Trail Parcel 7.42 $55,650 $107,590
Dog Park 2.00 $15,000 $361,000
Velodrome Area 4.20 $31,500 $60,900
Trails 21.48 $161,100 $311,460
Total Developed Park Lands, acres 112.22 $11,471,250 $1,117,075 $590,260 $528,045 $2,786,920 $2,216,620 $8,044,400
Developed Acres Reqd for Population of 33,960 112.07 Total Current Value Parks $26,754,570
Developed Park Acreage Surplus or Deficiency 0.15
Developed Park Acreage Deficiency 0.00
Actual Developed Parks per 1,000 3.30
Value to Cure Deficiencies $0 Per Acre Value of Parks (including Land Value) $238,400
Notes:
(1) Inserted Value - Category "F" Improvement Cost undervalues Heritage Park due to the small area of the park.
(2) Acreage Value + $300,000 to account for restroom and parking lot; Using Category "D" Improvement Cost (similar to Skate Park) overestimates the value.
Improvement Value By Category
63.40