HomeMy Public PortalAboutResolution 2015-11-03 Adopting the Fraser Valley Economic Development Strategic PlanTOWN OF FRASER
RESOLUTION NO. 2015-11-03
A RESOLUTION ADOPTING THE
FRASER VALLEY ECONOMIC DEVELOPMENT STRATEGIC PLAN
WHEREAS, the Town of Fraser partnered with the Town of Winter Park and the Chamber
of Commerce to develop a strategic economic development plan to identify actionable
near term opportunities for collaboration between the entities with the goal of improving our
local economy; and
WHEREAS, a strong local economy is an important component of a sustainable community
(defined as including social, fiscal, and environmental sustainability); and
WHEREAS, the Town of Fraser's General Fund relies on local business success for sales
and property tax revenues (roughly 70% of all General Fund revenues) in order to fund
expenditures necessary to provide services to the community.
NOW THEREFORE BE IT RESOLVED BY THE BOARD OF TRUSTEES OF THE TOWN OF
FRASER, COLORADO THAT:
The Fraser Town Board hereby adopts the Fraser Valley Economic Development
Strategic Plan.
2. The Fraser Town Board directs staff to appropriate resources to the priorities as identified
in the Plan and projects/programs as identified in the approved 2016 Budget.
3. The Fraser Town Board commits to meeting at least twice annually with the Winter Park
Council and Chamber Board to evaluate progress and discuss opportunities.
DULY MOVED, SECONDED, AND ADOPTED THIS 18t' DAY OF NOVEMBER, 2015.
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Lu Berger, Town Clerk
TRUSTEES
THE FRASER VALLEY STRATEGIC
ECONOMIC DEVELOPMENT PLAN
NOVEM BER 2015
PREPARED BY
RRC ASSOCIATES & EPS
WITH ASSISTANCE FROM: TOWN OF FRASER; TOWN OF WINTER PARK; WINTER PARK & FRASER CHAMBER;
FRASER VALLEY METROPOLITAN RECREATION DISTRICT; GRAND COUNTY OFFICE OF ECONOMIC
DEVELOPMENT
■
Introduction.......................................................................................................................... 2
The Fraser Valley Economic Development Framework: .......................................................... 3
Economic Development Goals............................................................................................... 4
Economic Development Goal Overview: Enhance transit and multi -modal transportation...... 8
Economic Development Goal Overview: Increase and Expand Access to Broadband Services
throughoutthe Fraser Valley............................................................................................... 12
Economic Development Goal Overview: Increase Housing Opportunities for the Current and
Future Workforce at a Variety of Price Points...................................................................... 17
Economic Development Goal Overview: Nurture and Grow the Tourism Industry ................ 22
Economic Development Goal Overview: Support Existing Businesses while also Strategically
Recruiting Businesses to the Fraser Valley............................................................................ 31
The Fraser Valley Economic Development Framework Overview .......................................... 39
AdditionalPriorities............................................................................................................ 43
Introduction
The Towns of Fraser and Winter Park recognize that multiple economic development
opportunities exist that are best realized through mutual efforts. The Strategic Economic
Development Planning process was initiated to explore and act upon the highest priority
opportunities that were identified through a cooperative process. The following economic
development strategy establishes goals, strategies, and actions that the towns anticipate
pursuing in the next three to five years for the Fraser Valley, identified as the region from the
top of Red Dirt Hill to the top of Berthoud Pass. These agreed upon strategies in no way
preclude other initiatives that the individual towns may undertake to further goals or policies of
the Towns of Fraser and Winter Park.
The planning process has benefitted from participation by other existing organizations in the
Fraser Valley including Grand County, the Winter Park & Fraser Chamber, the Fraser Valley
Metropolitan Recreation District, and members of the business community. The importance of
these organizations and their contributions to economic vitality of the Fraser Valley are
anticipated to continue and are identified as important to continued economic development.
Representatives from these entities have been important participants in developing this
Strategic Plan and they are anticipated to be valued partners in the implementation of
economic development initiatives in the Fraser Valley.
In recognition of the opportunities for coordinated efforts to deal with economic development,
the towns of Fraser and Winter Park joined with the supporting entities in a strategic planning
effort that resulted in this Strategic Plan. Following several working meetings by a
representative committee, a series of potential strategies were identified by the group and
these opportunities were tested through a community -based survey and through various
stakeholder discussions. This Strategic Plan results from these joint efforts.
The Strategic Economic Development Planning effort builds on the Grand Profile, a Grand
County -based project that compiled and assessed a variety of economic data and metrics. An
important consideration in initiating the current program is the availability of information that
has been systematically compiled. These data permit the Towns of Fraser and Winter Park to
move ahead rapidly without undertaking the sometimes time consuming efforts of data
collection that often precede economic strategies. In effect, the Grand Profile has permitted
this project to be 'jump started" and relevant information from that effort has been used and
cited where appropriate to support the findings and conclusions that underpin the specific
strategies identified below.
In preparing this Strategic Plan it is recognized that there are a variety of ongoing efforts within
the Towns of Winter Park and Fraser that overlap with economic development initiative. These
include a number of strategies that are termed "community development" or planning and are
documented by previous studies and reports/plans. A list of some of these documents is
presented as an Exhibit to this document.
This Strategic Economic Development Plan is a short term plan that identifies specific strategies
and actions that can be implemented in the next three to five years; however, in some cases,
the identified efforts will begin immediately upon approval of the Strategic Plan. A brief
explanation of the identified framework is presented below, followed by a series of goals and
actions; each is intended to further the purposes of this Strategic Plan.
The Fraser Valley Economic Development Framework:
The towns and supporting entities of the Fraser Valley recognize that improving the
quality of life in the valley is a key component of local economic vitality. This
consideration is being addressed through community development efforts by the
towns that include actions related directly to economic development, as well as
peripheral actions that will further broaden community objectives. This Strategic Plan
anticipates that the economic development actions identified herein will be tied to
other ongoing community development activities and that the communities will
continue to plan and invest in ways that improve the communities for residents and
visitors alike.
• The towns and supporting entities of the Fraser Valley will work together to better use
existing resources to further economic development opportunities.
• The towns and supporting entities of the Fraser Valley will work together to develop
effective metrics to evaluate each economic development goal and their respective
actions as outlined in the Strategic Plan. These metrics will also extend to a
commitment to keep the data of the Grand Profile up to date, as the Grand Profile.
The metrics and updates are outlined for each goal in the respective Progress &
Updates sections.
Actions:
• Continue joint meetings on a periodic basis to enhance communications and
coordination.
• Pursue opportunities for joint funding of initiatives with particular attention to
the Actions identified in this Plan.
Framework Overview — Click Here
Progress & Updates — Click Here
Economic Development Goals
The Strategic Economic Development Plan Committee, a community -based survey and
stakeholder discussions identified the following five goals as priorities for economic
development within the Fraser Valley.
A statement of each goal is provided in this section of the overview, followed by a series of
specific targeted actions that were agreed upon by the Strategic Economic Development Plan
Committee. More detailed analysis of each goal and the corresponding actions as well as both
a brief situational and competitive analysis is accessible through the Goal Overview provided
below. In addition, progress reports and subsequent updates are also accessible for each
strategy below.
• Enhance transit and multi -modal transportation
Actions:
Sales tax initiative for funding (In Progress - Fall 2015 for both Towns)
Work to expand transportation by partnering with other entities
• Assist in implementation of trails master planning efforts
Goal Overview —Click Here
Progress & Updates — Click Here
• Increase and expand access to broadband services throughout the Fraser Valley
Actions:
• Support for initiatives to create and expand broadband services within the Fraser
Valley
• The towns will undertake additional studies to insure the implementation of best
practices
• Explore public/private initiatives for funding
• Consistent with local studies, the towns will initiate construction activities to create
broadband services to be financially viable and efficient
Goal Overview —Click Here
Progress & Updates — Click Here
Increase housing opportunities for the current and future workforce at a variety of
price points
Actions:
• Winter Park and Fraser will work together on selected aspects of attainable housing
issue
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• Fraser will explore a needs assessment comparable to the 2015 Winter Park Needs
Assessment
• Collectively inventory and investigate vacant land parcels that might present
opportunities for redevelopment or additional density
• Encourage the development of workforce housing that is accessible via public transit
• Encourage the development of additional rental units in an apartment configuration
• Improve program implementation and management services for attainable housing,
taking advantage of economies of scale
Goal Overview —Click Here
Progress & Updates — Click Here
• Nurture and grow the tourism industry
Actions:
• The Fraser Valley should capitalize on its proximity to RMNP (In progress — 2015
Basecamp Initiative)
• Partner with local trail and biking efforts, the Chamber, and other biking/trail
entities to solidify position as a premier mountain bike destination in North America
• Continue to evolve the events strategy to be consistent with the branding message,
as well as to attract targeted visitor segments to enhance tourism, increase
resiliency to weather and outside forces, and to expand the visibility of the Fraser
Valley as a location for play and work
• Grow midweek and off-peak visitation to limit the impact of peaks and valleys within
the business model
• Invest in infrastructure to enhance the visitor experience
• Focus on evolving the customer base beyond the traditional market segments
Goal Overview —Click Here
Progress & Updates — Click Here
• Support existing businesses while also strategically recruiting businesses to the Fraser
Valley
Actions:
Business Retention
• Provide local businesses with information resources to encourage expansion and
competitiveness. Insure that the towns have readily available information, including
the available community data such as the Grand Profile, to explain and express
support for businesses in the community
• Designate a shared business development function/position within the Winter Park
& Fraser Chamber to encourage the retention and expansion of existing employers
in cooperation with, and funded by, the two towns. This individual would serve
multiple roles on behalf of the Towns of Fraser and Winter Park, with responsibilities
that include being a business resource, an advocate, and a dedicated individual
within local government to align, oversee and implement economic development
strategies as determined and prioritized by the respective Town elected officials
• Review existing regulations and fee structures in the communities to insure
consistency with policy intent. Conduct a regular assessment survey of local
businesses, built upon the Grand Profile, to gather information on potential
expansion and contraction as well as needs and opportunities
• Support efforts of local employers to obtain a trained and skilled workforce, while
recognizing that this action requires continued attention to attainable housing (see
Housing Strategy above)
• Expand the Commercial Enhancement Grant Program in both communities with a
targeted grant amount each year that is designed to grow the reach of the program
from current levels
• Continue to make downtown improvements in both Fraser and Winter Park to
enhance the sense of community identity and a sense of progress and attention to
quality
• Collaborate with existing entities and/or initiatives, as appropriate, to provide
resources for business expansion and retention
• Implement the integrated brand platform through all messaging under business
recruitment (see brand platform below)
New Business Development
• Develop cooperative relationships and cultivate a network of appropriate referral
resources for emerging companies that includes basic industries from the Front
Range such as marketing, finance, intellectual property and technology. This action
is generally not intended to encourage relocation of these companies; rather, the
strategic efforts will be directed at creating an awareness of Grand County as a
lifestyle choice for growing companies and professionals, and particularly for the
millennial age segment (aged 18 to 34 in 2015). The effort could include fostering
the creation of appropriate work spaces, support services, and a refined brand
message that could be something like, "You live on the Front Range, come play and
work from the Fraser Valley"
• Attract diverse employers that contribute to the overall quality of the communities
• Recruit location neutral businesses and/or professionals
• Initiate a program to use community events (i.e. concerts, cultural, sports, etc.) as a
place for business recruitment
• Identify missing retail or professional service companies and provide this
information to residents and visitors using available sources to develop a list of
target businesses
• Coordinate efforts with those in the Grand County Office of Economic Development
and local realtors/commercial real estate owners to encourage publicity and use of
the Grand County site selection tool to catalog available vacant land/store fronts
• Implement the integrated brand platform through all messaging under business
development (see brand platform below)
Business Friendly Brand Development
• Develop an integrated brand that incorporates the dual ideas of business retention
and recruitment. Messaging for business retention should stress the quality of life
and business opportunities presented by the Fraser Valley. Messaging for business
recruitment should reinforce the Fraser Valley brand and the identities of the towns
of Fraser and Winter Park as a means of communicating the quality of life, growth
opportunities, accessibility and the shared vision for the region. Consistent
marketing messages should be developed to support the brand platform.
• Develop a consistent marketing message as part of the brand platform that stresses
the quality of life and business opportunities presented by the Fraser Valley. This
message will be framed using information obtained from the community data
sources such as the Grand Profile stressing recreation, safety, locational advantages
including access to Denver International Airport relative to other mountain towns, a
small town lifestyle, a supportive business environment, etc.
• Create a shared website to promote business retention and expansion, as a new site
targeting the Fraser Valley specifically and work with the Colorado Office of
Economic Development and International Trade for business retention/expansion
program support
Goal Overview —Click Here
Progress & Updates — Click Here
Economic Development Goal Overview: Enhance transit and multi -
modal transportation
Current efforts by the towns of Fraser and Winter Park to fund and develop enhanced
transportation services will be priority strategies in the coming years. If new funding options
become available the Towns will work together to create transportation -related improvements
to benefit residents and visitors. If new funding authorization is not obtained, the Towns will
seek other means to support improvements. As a part of transportation efforts, the
importance of trail systems is also identified. The Fraser Valley and Grand County have
extraordinary trail systems. The Towns will support the efforts of organizations providing trails
including Grand County, the Headwaters Trails Alliance, and the municipalities will continue to
commit local resources to the development, publicity, and expanded planning to insure that the
trail system provides high quality recreation and transportation opportunities to residents and
visitors alike.
Actions
• Sales tax initiative for funding (In Progress - Fall 2015 for both Towns)
• Work to expand transportation by partnering with other entities
• Assist in implementation of trails master planning efforts
Background
There are numerous economic benefits directly attributable to transit service, including access
to employment, reduced demand for parking infrastructure, fuel savings and time savings from
reduced congestion. In addition, some transit investments have resulted in increased real
estate values due to the access to transit. Sophisticated transit networks can encourage
compact land use patterns which can have significant economic benefits over time. Transit
service also opens employers to a larger pool of potential employees. In areas with high
demand for parking and high land values, transit provides a major benefit by reducing the
number of required parking spaces.
For small towns, multi -jurisdictional transit service is particularly beneficial because it
aggregates resources and ridership for those who commute between towns for work and
leisure. Shared services are more economically and operationally efficient than connections
between separate entities. These efficiencies transfer to the riders' fares and convenience.
Programs are typically supported through combinations of fare revenues, funding from various
levels of government, and dedicated tax levies.
Current Efforts
Currently, the upper Fraser Valley area has a bus shuttle system that is owned and operated
seasonally by Winter Park Resort. This system has been in place for over 20 years and because
it is a private system it has been ineligible for public transit money from either federal or state
programs. The Town of Winter Park has been in negotiations with the Winter Park Resort
(Intrawest) regarding taking over the ski area bus system and expanding to year-round
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operations. The current budget for the system would be around $1.4 million annually. The
system would serve the larger Fraser Valley.
Winter Park and Fraser have initiated tax increase measures to fund the system. Winter Park
has proposed a 2 percent sales tax increase. The additional 2 percent sales tax would be
dedicated to transit and multi -modal transportation and is expected to generate approximately
$1.8 million annually. This would raise the total sales tax to 10.9 percent, up from 8.9 percent
(2.9 percent state, 1.0 percent, county, 5 percent town). The expanded year-round bus system
has an estimated budget of $1.4 million including a $200,000 annual contribution for capital
replacements for the Winter Park Resort. The ski area has also agreed to contribute $300,000
to operations per year for the next 10 years. Fraser has also proposed a smaller sales tax
increase of 1 percent also to be dedicated to transit and trails. This increase would contribute
$400,000 in additional annual revenue. Fraser tax rate is currently 7.9 percent (2.9 percent
state, 1.0 percent county, and 4.0 percent town) increasing to 8.9 percent overall (with an
additional 1.8 percent on lodging).
Winter Park is also seeking around $200,000 in state and federal funding for the transportation
system. Not included in the $2 million operating cost is a capital procurement cost of around
$600,000 to $700,000 per year. These costs would cover the purchase of a new fleet of 18 ADA
accessible buses among other things. The town also hopes to build a new maintenance facility,
the cost of which is not included in current projections.
Case Studies
Roaring Fork Transit Authority
The Roaring Fork Transportation Agency was formed in 1983 through an IGA between the City
of Aspen and Pitkin County to provide countywide service. Prior to the formation of RFTA, the
City of Aspen operated city routes and skier shuttles and Pitkin County provided commuter
services between Aspen and El Jebel, an unincorporated community in Eagle County. In 2000,
RFTA was reformed as the Roaring Fork Transit Authority to provide regional transit service
under the newly approved Rural Transit Authority legislation. At that time, the Authority
provided service to seven jurisdictions along Highway 82 in the Roaring Fork Valley including
Glenwood Springs, Carbondale, Basalt, Snowmass Village, Aspen, Pitkin County, and Eagle
County, with the addition of New Castle in 2004. In 2013, RFTA introduced the VelociRFTA, the
first rural bus rapid transit (BRT) system in the United States. The system offers express service
throughout the Valley. RFTA carries about 4.0 million passengers annually.
Rider fares and public investment provide the majority of the $20.5 million operating budget.
Each city provides a variable level of sales tax funding ranging from 0.4 to 0.8 percent
determined by its level of service. About $400,000 of the Authority's budget is allocated to trail
maintenance.
Eagle County ECO Transit
Eagle County Transit, known as "ECO Transit", operates bus service between Vail, Beaver Creek,
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Avon, and Edwards. In 1994 the founding partners decided to seek a dedicated funding source
(Eagle County transportation sales tax) for regional transportation. As the Valley's population
grew, the demands for transportation increased and this translated into a larger financial
commitment from the funding partners. A ballot initiative for a dedicated funding source was
approved by the voters in November 1995. The Eagle County Regional Transportation Authority
was made official on January 1, 1996. The 0.5 percent county sales tax is dedicated to funding
regional transportation. One -tenth of this tax goes toward funding the regional trails system.
Summit County Summit Stage
Summit Stage, operated by Summit County, offers free public bus service to Summit County,
Colorado including ski areas, resorts, trailheads, town areas, shopping, medical centers, and
some residential areas. Summit Stage also provides free ADA paratransit service.
The Summit Stage system was started, and initially funded, by the ski resorts for resort
operations. However, it became a more broadly used amenity for visitors to the county as the
system grew, and the County has since taken over operations. The transit service is an
approximately $7.3 million operation, funded largely by a voter -approved 0.75 percent sales
tax. The tax is collected countywide, with more than 30 percent coming from sales in
Breckenridge, approximately 20 percent from unincorporated Summit County and Silverthorne
sales, and 14 and 12 percent from sales in Frisco and Dillon, respectively. Though the Stage is a
county agency, it is directed primarily by a transit board, made up of representatives from the
towns of Breckenridge, Silverthorne, Frisco, Dillon, the county and each of the four ski areas.
Teton County START Bus
The Teton County Public Bus Service (START bus) provides service in the Jackson Hole area.
Major service areas include the Town of Jackson, Teton Village, Teton Valley, and Star Valley.
Rides within Jackson are free of charge for residents and visitors. Fares are charged to and from
farther destinations, such as Star Valley and Teton Valley.
The Town and County have relied on federal funding to help pay for much of the bus system.
Approximately $1.8 million, or more than half of START's day-to-day operating budget, is paid
for by FTA funds out of a $3 million annual budget. The town and county contribute
approximately $850,000 total. With plans of expansion in place, federal assistance will need to
be further supplemented with local dollars. In recent discussions, the town and county are
considering the option of increasing the local sales tax to support transit and housing needs.
Fraser Valley Opportunities
Providing year round transit service is clearly an important component for economic
development in a regional resort setting. Vail/Eagle Valley, Breckenridge/Summit
County, Aspen, and the Roaring Fork Valley all have comprehensive systems providing local
area ski access and regional workforce commuter services. Provided Winter Park and Fraser
approve the current proposed sales tax initiatives, a regional transportation authority can be
established that would allow for the Fraser Valley to develop and operate a similar system.
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Furthermore, the excess sales tax would be used to improve multi -modal transportation
opportunities within the Fraser Valley.
Supporting Documentation
Town of Winter Park Transit MOU Memo and Agreement, May 05, 2015.
Town of Winter Park Transit Service Plan, May 19, 2015.
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Economic Development Goal Overview: Increase and Expand Access
to Broadband Services throughout the Fraser Valley
Existing broadband infrastructure presents a unique opportunity to the Towns to cooperatively
initiate programs that will result in cost effective and high quality services that are competitive
with and meet or exceed services in other small resort communities. The Towns will explore
digital infrastructure and broadband services, both within the incorporated towns and within
other areas of the Fraser Valley, where financially feasible. These efforts will draw upon prior
studies, such as the Regional Broadband Strategic Plan by the Northwest Colorado Council of
Governments, as necessary and when appropriate. The towns will also undertake additional
studies to insure that plans for broadband services are drawing upon best practices as
understood by reviewing actions in other similar communities to take full advantage of the
opportunities for financially viable broadband services in the Fraser Valley.
The Towns will initiate construction activities to create broadband services consistent with local
studies with an emphasis placed on financially supportable plans, designed toward timely
completion of infrastructure and operating systems.
Actions:
• Support for initiatives to create and expand broadband services within the Fraser
Valley
• The towns will undertake additional studies to insure the implementation of best
practices
• Explore public/private initiatives for funding
• Consistent with local studies, the towns will initiate construction activities to create
broadband services to be financially viable and efficient
Background
In many communities, digital infrastructure, including broadband internet access services, is
most commonly provided by private telecommunications companies like CenturyLink, or cable
companies like Comcast. A growing number of communities are providing digital infrastructure
as a municipal utility not unlike a city electric service. Modern connection technologies include
wireless and fiber optic cable. Although many cities previously deployed Wi-Fi based solutions,
municipal fiber networks are increasingly popular due to the demand of increased speeds and
capacity for modern audio and video applications. Fiber offers more bandwidth and flexibility
than existing alternatives, and is seen as a long-term investment in keeping up with technology.
Once installed, connection to the infrastructure can be offered directly by the municipality, or
facilitated by a city's investment in broadband backbone infrastructure, which can then allow
for private companies to provide service at more reasonable costs.
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Proponents of municipal fiber claim that it promotes high -quality job growth. For example,
industries that rely on data centers, such as software companies, as well as financial services
and manufacturing companies, require the ultra -wide bandwidth provided by fiber. Fast
connections also facilitate complex functions from remote locations such as CAD and
manufacturing. As telecommuting grows in popularity amongst employers and employees,
providing high-speed internet to the home enables this option for residents in rural
communities who live far from major employment centers.
Investing in fiber infrastructure has become more prevalent in smaller, rural communities in
order to stay competitive with peer cities primarily because private providers have been slow to
build the digital infrastructure necessary to support high capacity service. Traditional private
providers, like Comcast, typically roll out connections based on existing consumer volume and
on overall population density. In many rural areas, the size of the potential customer base
makes investing in the backbone infrastructure needed for hard line fiber too small, making the
investment financially infeasible. Consistent with traditional providers, newer services such as
Google Fiber are only being offered in relatively large metropolitan areas (Austin, TX, Salt Lake
City, UT, Kansas City, MO, etc.).
Developing a municipal fiber network is not without challenges. Private providers have
sometimes sued municipalities for attempting to impede on their market shares. In 2009, the
Minnesota Supreme Court affirmed the right of Monticello, a suburb of Minneapolis of
approximately 10,000 people, to install publically-owned fiber-optic lines, something its citizens
chose in a referendum. A private company, TDS, opposed the project in court, but because the
city already had issued $26 million in bonds and planned to begin installation, the lawsuit was
dropped and the city was allowed to roll out fully. Philadelphia similarly received resistance in
2004 from private companies when it set out to provide low-cost wireless internet access to its
citizens. Major private companies encouraged lobbies against municipal fiber deployment in
the state of Pennsylvania. Ultimately, the city was backed into a deal with a smaller, less
established internet service provider for unfavorable terms and the program eventually
collapsed.
In Colorado, based on the passage of SB 152 in 2005, municipalities must secure voter approval
to develop municipal broadband facilities and services. The current law limits the ability of
Colorado cities to provide a broad spectrum of services, including:
• Free internet service in city libraries, parks and community centers;
• Partnering with private businesses and leveraging government infrastructure to provide
affordable and high-speed internet service throughout the entire community; and
• Direct provision of broadband services by municipal governments.
Municipal investments in digital infrastructure can be built and funded a number of ways. With
voter -approved exemption from SB-152, cities can build and operate their own broadband
system, in some cases where there is inadequate private options, and in other cases to provide
more cost competitive options. A city or town can also invest in the backbone infrastructure
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system and allow private providers to tap in for local service to address cost feasibility
constraints. Some cities including Durango have laid out "dark fiber", or inactive fiber, so that
when private companies are looking to expand into that city, the infrastructure is ready.
The most common funding sources in Colorado jurisdictions include bond measures, taxes, and
enterprise funds. A challenge involved with large municipal investments is servicing the debt. In
the case of enterprise funds where consumers are expected to pay a rate for the service, the
program needs to be widely used and priced competitively in order to cover infrastructure
costs.
Cities in Colorado with municipal networks include: Cortez, Durango, Glenwood Springs, and
Longmont.
Current Efforts
At present, reliable broadband service in the towns of Fraser and Winter Park is limited to the
hard -wired section of US-40 through the downtown areas. Service is provided by two the major
ISPs in the state, CenturyLink and Comcast (in some areas with one provider on one side of the
road and the other on the opposite), and further supplemented by two wireless companies.
Historically, these areas were prioritized for private service connection because they have large
concentrations of businesses. As a result, outlying areas beyond the downtowns do not have
sufficient digital infrastructure for the growing population. These areas are sparsely populated
and largely comprised of low density second home communities.
However, given the anticipated rate of growth and the increasing prominence of cloud -based
technology in both business and home environments, Fraser and Winter Park are looking for
means to improve the level of service in these areas. As a first step, Fraser and Winter Park
have proposed measures on the November 2015 ballot for exemption from SB 152. If approved,
the towns would be able to fund investments to expand infrastructure for broadband
connection. It should be noted that Grand County has chosen not to pursue a similar ballot
initiative in the November 2015 cycle, this directly impacts the outlying unincorporated areas of
the Fraser Valley which are currently reliant on a County initiative or other efforts to address
the unincorporated areas.
In addition to these initiatives, Grand County has formed a committee to conduct initial
research towards the goal of improving countywide broadband service. Fraser, Winter Park,
and Grand County are also supported on the regional level by the Northwest Colorado Council
of Governments (NWCCOG). The NWCCOG has developed a strategic plan to improve
broadband connection throughout the region. The members include Eagle, Grand, Jackson,
Moffat, Pitkin Rio Blanco, Routt, and Summit Counties and most municipalities within those
counties, as well as Steamboat Springs, Glenwood Springs and Carbondale.
A regional level approach is beneficial because many of the communities face the same issues.
The lack of population density, distance between population centers, and mountainous
topography deters service providers that wish to create or extend their broadband
infrastructure and networks in the region. To help off -set these factors, NWCCOG is working
i[]
with stakeholders, service providers, and the state to apply for funding from the Federal
Communications Commission (FCC) specifically set aside for broadband expansion in rural
areas. In 2014, a taskforce was formed, and a full-time broadband coordinator was hired to
spearhead these efforts. NWCCOG's broadband program receives funding from the Colorado
Department of Local Affairs' Energy and Mineral Impact Assistance Fund.
Case Studies
City of Cortez Fiber Project
The City of Cortez, Colorado's Fiber Project is a leading example of municipal broadband. The
Cortez Fiber Project was initiated for economic development purposes to promote clean
industry in the area, help existing businesses expand, and incentivize private providers to
connect to the infrastructure. Because it began its system prior to 2005, it is exempt from the
requirements of SB-152. Over time, the community of approximately 9,000 residents has
become a regional fiber optic hub, receiving several grants from the state, partnerships with
neighboring governments, and local investments. Cortez serves as the nexus for the western
half of the Southwest Colorado Access Network (SCAN), which connects public institutions in a
five -county region to fiber.
Cortez has taken a gradual approach towards developing its fiber infrastructure, beginning with
an institutional network, or I -Net for local anchor institutions in 1999. In its first phase, the city
installed 120,000 linear feet of fiber to support city facilities, county facilities, hospital, fire
district, school district and the downtown core business district. The city's investment of $1
million was matched by Colorado Department of Local Affairs (DOLA) for a second phase in
2015 that will add an additional 27 miles of fiber optic lines along U.S. 160 and Colorado 149,
allowing an additional 400 business owners to tap into the service. The network's own reserve
fund will contribute $250,000, while the remainder will come in the form of interdepartmental
loans from the city's general fund and equipment fund. Future phases over the next five years
will serve homes in addition to businesses at an estimated cost of $10 million.
City of Longmont NextLight Broadband
NextLight is the fiber -optic -powered internet service the City of Longmont is selling alongside
other competitors like Comcast and CenturyLink. The city owned utility, Longmont Power &
Communications, issued a $40.3 million bond issue in 2014 to build the network to be paid back
through user fees over time. By leveraging electric utility, the city obtained favorable interest
rates for NextLight's voter -approved bond issue, reducing the overall cost of the associated
infrastructure. The service is currently available to businesses and residents in most of the city,
and is expected to expand to the remaining western portion by the first quarter of 2016. The
city charges $50 per month for residential users, which is a deliberately competitive price to
other fiber providers, in order to attract at least one-third of its residential population to the
service within the first five years.
Fraser Valley Opportunities
15
Fraser and Winter Park have the advantage of working together toward an efficient expansion
of infrastructure. If Fraser and Winter Park's SB 152 exemptions go through, the next steps
would determine where the needs are and what level of service is feasible for different
communities and uses. A large part of this discussion entails the financing piece. Longmont, for
example, is in an optimal situation because Longmont already manages its own utilities network
which has an adequate fund balance which funds front-end the infrastructure. With upfront
costs largely covered, user fees are freed up to fund operations. Because Fraser and Winter
Park do not have density and existing infrastructure of this magnitude, they will most likely
need to issue general obligation or revenue bonds which will require voter approval. Fraser and
Winter Park should also continue to seek opportunities to partner with the County and
NWCCOG. These partnerships are especially helpful for grant opportunities. This year, the
Governor announced that building broadband infrastructure throughout the state is its top
economic development priority. As a result, DOLA has already committed $19 million
throughout the state. There are also substantial sources of funds available from the federal
government.
At the town level, Fraser and Winter Park can provide land, tower sites, and partnerships with
private providers, and funding for fiber and dark fiber infrastructure. Due to the topographic
constraints of this area's geography, a cost-effective solution will likely require a combination of
wireline and wireless technologies. Because private wirelines and wireless towers are already in
place along the U.S. 40 Highway, it will be cost-effective for the communities to connect to this
existing infrastructure. In recent discussions, Fraser and Winter Park have looked into providing
Wi-Fi along their main streets. This amenity would enhance the visitor and tourist experience,
especially for the many international visitors who rely on Wi-Fi for communication when they
are outside the ranges of their home networks. This program would also be eligible for DOLA
matching grant funds.
Supporting Documentation
nal Broadband Strateaic Plan. Northwest Colorado Council of Governments. December
13, 2013.
16
Economic Development Goal Overview: Increase Housing
Opportunities for the Current and Future Workforce at a Variety of
Price Points
The surveys conducted in 2015 as a part of the Grand Profile and the Strategic Economic
Development Plan both identify workforce housing as a significant need/consideration in the
County and in the Towns of Fraser and Winter Park. The August 2015 Economic Development
Plan survey found "Increasing housing opportunities for the current and future workforce at a
variety of price points" as the second most important action out of a list of 13 actions
prioritized by residents. This problem is acute and widely recognized, is contributing to labor
shortages, and is strongly related to future economic development in the Fraser Valley.
While it is recognized that some of the opportunities and challenges related to attainable (or
"affordable") housing are unique to the individual municipalities, the Towns will work together
on selected aspects of the problem. Fraser will explore the potential to develop information
that complements that recently obtained by Winter Park through the Needs Assessment
(September 2015), and where appropriate the Towns will seek to act together to address
opportunities and needs. The Towns recognize that housing affordability problems are not
defined by municipal boundaries. Further, there are potential economies available by working
together to address housing needs.
Actions
• Winter Park and Fraser will work together on selected aspects of attainable housing
issue
• Fraser will explore a needs assessment comparable to the 2015 Winter Park Needs
Assessment
• Collectively inventory and investigate vacant land parcels that might present
opportunities for redevelopment or additional density
• Encourage the development of workforce housing that is accessible via public transit
• Encourage the development of additional rental units in an apartment configuration
• Improve program implementation and management services for attainable housing,
taking advantage of economies of scale.
Background
The problems of affordable housing are exacerbated by seasonality, a lack of economic
diversification, and a shortage of workforce rental units. While it is important to note that the
recent study focused specifically on Winter Park, it identified a number of factors that are
currently contributing to the affordability and availability problems in Winter Park (and by
extension to entire Valley including Fraser and unincorporated areas) including:
• Growth in jobs that are not being matched by development of workforce housing;
17
• The attractiveness of the Valley to Front Range residents, with commensurate pressures
on rental units;
• An increase in year-round leases in summer 2015 resulting in fewer available units for
winter seasonal employees;
• Long-term rental units being sold to second homeowners; and
• An increase in short-term rental activity being booked through VRBO and other on-line
hosting sites resulting in less available long-term rentals for workers.
The study also found that that workers are increasingly moving further down -valley from
Winter Park in order to reduce costs. The study found that only 22% of workers currently live in
Winter Park, low in comparison to many ski towns. While a similar statistic is not available for
Fraser, observations suggest that there is limited available housing for workers in Winter Park
and that increasingly, commuting is required.
Finally, the study also noted other problems that detract from Winter Park's evolution into a
year-round community including:
• Poor condition of units, with inadequate maintenance and repair, and an aging housing
stock;
• Little diversity of housing supply, with much reliance on condominiums; and
• Lack of neighborhoods in which locals occupy a majority of homes, negatively impacting
the sense of community and vibrancy for permanent residents.
Together these factors present challenges that are identifiable and measurable. This Plan
contemplates a series of actions related to affordable housing that will seek to address the
identified problems.
Case Studies
Summit County, Colorado
Efforts to address affordable housing issues in Summit County date back over 20 years
beginning with County efforts to study the situation using surveys and other analytic
techniques. Over the years a series of reports were developed at the County level,
complimented by analyses commissioned by various towns in the county, and by Keystone and
Copper Mountain Resorts. Housing for workers was developed at both resorts as a
requirement of the P.U.D.'s that guided development in both locations.
The most recent study of affordable housing by the County was conducted in 2013. Designed
to build on past studies, and based on an extensive survey of County residents, the 2013 effort
provided an updated benchmark of existing conditions along with a series of recommendations
designed to address findings from the Needs Assessment. A link to the Needs Assessment is
provided here: 2013 Summit Workforce Housing Needs Assessment.
The important conclusion from efforts in Summit County is a recognition that housing problems
defy municipal boundaries and that some of the analysis of conditions requires a broader
M
examination of commuting, residential prices and job generation. In Summit County's case,
data show in -commuting to jobs in the County from locations in Alma/Fairplay and Kremmling
that would typically not be picked up in a study based just on a municipality. These patterns
are similar to some of the commuting patterns in Grand County where workers in the Fraser
Valley commute from a number of locations north of the Fraser/Winter Park boundaries.
Efforts in Summit County have involved coordination between County government, a County
Housing Authority, resort developers and the individual towns in the County. Together, these
programs have resulted in the construction and management of a large number of housing
units designed for the local workforce, and databases that have allowed conditions and
potential problems to be carefully monitored over time.
Breckenridge, Colorado
The Town of Breckenridge has developed carefully conceived and periodically refined
workforce housing programs dating back to the early 1990's. These programs were developed
through cooperation with Summit County. The stated goal of the current program is to:
Insure that affordable housing is integrated throughout the community to
provide a variety of housing options for the local workforce.
Information about the program can be found on the Town's website as listed at the end of this
paper and the staff planner, an employee for over 15 years and well versed in the programs,
can be reached here: contact Laurie Best
The Town of Breckenridge has adopted specific housing strategies (link to 2008 Workforce
Housing Action Plan) to insure that there are opportunities for the workforce to live in Town.
The Breckenridge programs are funded by several different sources including a November 2006
voter -authorized County -wide 0.125% sales tax and a development impact fee for affordable
housing purposes. The sales tax and impact fee generates approximately $600,000 annually in
Breckenridge. This tax and impact fee will expire in 2017. In addition to the revenue generated
through the sales tax and impact fee, the Town of Breckenridge also allocates additional funds
into a Breckenridge Affordable Housing Fund.
Following the adoption of the County -wide sales tax and impact fee, the Summit Combined
Housing Authority (SCHA) was formed in 2006 to represent all of the jurisdictions within
Summit County. The Town of Breckenridge works closely with the SCHA to coordinate the
Town's housing projects and programs with other County -wide efforts.
As summarized below, there have been over 1,100 deed -restricted units created in
Breckenridge. They are often clustered in individual neighborhoods or developments and have
frequently consisted of "for sale units." In addition to the developments listed, there are over
116 individual units dispersed in Town that are subject to deed restriction.
Two major rental projects were completed in 2001 (Pinewood Village) and 2000 (Breckenridge
Terrace). In recent years there has been increased interest in rental units, both at the County
19
and Town levels with various new projects under discussion.
Deed Restrictions:
• Wellington Neighborhood (230 'for sale' units - under construction)
• Gibson Heights (40'for sale' units - completed in 2003)
• Vista Point (18 'for sale' units - completed in 2004)
• Vic's Landing (24'for sale' units - completed in 2008)
• Valley Brook Neighborhood (41 'for sale' units - completed in 2012)
• Kennington Townhomes (36 'for sale' units - completed in 1999)
• Monarch Townhomes (13 'for sale' units - completed in 2005)
• Pinewood Village (74 affordable rental units - completed in 2001)
• Breckenridge Terrace (180 rental units - completed in 2000)
• Block 11 (up to 350 future units - rental and 'for sale')
• Maggie Placer (9 additional 'for sale' units to be completed winter 2014/2015)
As summarized below, the Breckenridge website identifies a series of studies that contain
valuable information on housing efforts dating back to 2000. These reports and studies
document the gradual evolution of programs and strategies that have resulted from a
recognition of need and a willingness to commit public resources to a variety of programs. The
Summit County program, together with efforts by Breckenridge at the municipal level, provide
examples of regulatory, funding and physical design initiatives that target the ongoing challenge
of creating workforce housing in high cost and high quality of life mountain communities.
Studies / Impacts:
2014 State of Housing Report
2014 The Impact of Affordable Workforce Housing on Communitv Demoeraahics. Economi
and Housing Prices and Options
2013 Housing Needs Assessment Executive Summary
2013 Housing Needs Assessment Final Presentation
2008 Workforce Housing Action Plan
2000 Affordable Housing Strategy
2003 Upper Blue Housing Needs Assessment
2006 Breckenridge Housing Need Assessment
2010 Housing Highlights
2011 Resort Demographics
Jobs and Wage / Price and Income Information
Area Median Income
Workforce Housing Taxes and Fees
Affordable housing programs are now widespread in the Colorado mountain towns with a
variety of different approaches undertaken in response to varying physical conditions and
political realities. The "Workforce Housing Taxes and Fees" study by Melanie Rees of Rees
20
Consulting (2013) provides an excellent discussion of fees and taxes in Colorado communities
that are being levied specifically for workforce housing. The report summarizes findings from
15 jurisdictions outlining different approaches to funding a variety of programs within Colorado
communities. The study notes that revenues for programs were at a peak prior to 2008, but
that the post -recession period up through 2012 caused revenues of all types to decline. In most
jurisdictions, revenues started to increase in 2011 as construction started to recover. At the
same time, over the period 2011 to 2015 problems of work force housing availability have again
increased in many mountain communities, a result of the stronger economy.
An additional study by the same author, Melanie Rees, discusses 2011 Resort Demographics in
the State of Colorado and six resort communities (Grand County and Winter Park/Fraser were
not included). The study provides comparable information describing resort communities on a
number of metrics. These data provide a resource for communities wanting to compare
themselves to some of the other towns that are commonly viewed as the "competitive set" for
winter destination resorts.
Supporting Documentation:
Town of Winter Park Housing Needs Assessment, September, 2015
Reese, Melanie. "Emerging Trends in Colorado Resort Towns", 2011
Town of Breckenridee Workforce Housine
21
Economic Development Goal Overview: Nurture and Grow the
Tourism Industry
Tourism has been and will continue to be one of the primary drivers of the economy of the
Fraser Valley. The survey process conducted in 2015 as part of the Strategic Economic
Development Plan identified continued nurturing of the tourism as one of the areas of
emphasis for continued economic development in the region.
Nurturing and continuing to grow the already established primary driver of the economy will
result in positive economic growth in the Fraser Valley. The towns of Winter Park and Fraser
would benefit from collectively marketing the attractions and recreational opportunities of the
region collectively, making the Fraser Valley one of the premier mountain destinations. The
volatility created by the current state of the tourism industry can be addressed by growing
visitation during the off-peak periods (summer, shoulder seasons, winter midweeks, etc.). The
Fraser Valley has an extensive trail system, which can be leveraged to make the region a
premier mountain biking destination as well as improve summer visitation.
Actions
• The Fraser Valley should capitalize on its proximity to RMNP (In progress — 2015
Basecamp Initiative)
• Partner with local trail and biking efforts, the Chamber, and other biking/trail entities to
solidify position as a premier mountain bike destination in North America
• Continue to evolve the events strategy to be consistent with the branding message, as
well as to attract targeted visitor segments to enhance tourism, increase resiliency to
weather and outside forces, and to expand the visibility of the Fraser Valley as a location
for play and work
• Grow midweek and off-peak visitation to limit the impact of peaks and valleys within the
business model
• Invest in infrastructure to enhance the visitor experience
• Focus on evolving the customer base beyond the traditional market segments
The focus of the analysis below is tourism in the Fraser Valley. Tourism obviously plays a critical
role in the economies of Winter Park and Fraser, and therefore must be considered in any
economic development policy or strategy. Since tourism is a broad multi -faceted topic, the
focus of this analysis has been narrowed to four key areas: summer, winter, events and brand.
Summer
Background
Summer tourism has been the focus of growth opportunities in most mountain communities
over the past five years. Town governments, chambers and ski area operators have attempted
Phi
to attract summer visitors to their destinations through a variety of amenity, attraction and
event offerings.
In a study of ski municipalities, counties, and DMOs conducted in 2014, over 80 percent of
respondents indicated that their respective community was either equally as focused on
summer tourism as winter tourism or more focused on growing summer tourism than winter
tourism in the last three years. These efforts have led to some summer tourism indicators to
set record levels of visitation over the past three years. Most recently in 2015, DestiMetrics
indicated that summer lodging occupancy in 19 mountain communities was on track to set yet
another record for the months of May through October.
Current Efforts
The location and amenities located in and around the Fraser Valley provide a competitive
advantage for the area when it comes to summer tourism. The Winter Park & Fraser Chamber
have marketed the region as a "summer playground" for outdoor enthusiasts, offering an
extensive list of outdoor recreational opportunities and special events including but not limited
to:
While the activities listed above are not all unique to Fraser Valley, the area does have a
competitive advantage from some amenity offerings and location. Unlike most mountain
communities, the Fraser Valley is proximal to a major national park. Rocky Mountain National
Park attracts approximately 3 million visitors annually. The West Portal of the park is located in
Grand County and is easily accessible from the Fraser Valley. According to visitor research
conducted through the Grand Profile, visitors staying in the Fraser Valley indicated that one the
primary locations visited during their stay in Grand County in the summer was the Park. As a
result of this research initiative, the Winter Park & Fraser Chamber instituted a marketing
initiative for the summer of 2015 highlighting the Fraser Valley as the "basecamp" of Rocky
Mountain National Park.
In addition to access to Rocky Mountain National Park, the Fraser Valley also benefits from an
extensive trail system that attracts many outdoor recreation enthusiasts. Headwaters Trail
Alliance (HTA) is an advocacy group, unique to Grand County, that promotes the quality and
23
connectivity of the trails in the Fraser Valley. The organization developed a trails master plan in
2015 with the assistance of the Towns of Winter Park and Fraser as well as the Fraser Valley
Metropolitan Recreation District.
As a result of the extensive trails system, the Fraser Valley has been deemed "Mountain Bike
Capital USA TM". The region is able to attract mountain bikers of all ability levels with over 600
miles of cross-country biking trails and two established downhill bike parks. Trestle Bike Park at
Winter Park Resort has been deemed the fastest growing bike park in North America, and is
only behind Whistler Blackcomb in size. In summer 2015, the region came together and
established the goal of becoming the premier mountain biking destination in North America.
Thus, the area continues to improve and maintain its current trails system through the new
master plan as well as develop marketing materials to attract destination visitation for
mountain biking.
The Fraser Valley benefits from its ease of access to the Denver Metropolitan area for summer
visitation. The Valley has always had strong ties to the Colorado Front Range, with many of its
second homeowners identified as Front Range residents in the Grand Profile. The proximity to
the Front Range allows the Fraser Valley to not only be an attractive regional summer
destination but also a destination visitor summer destination.
Competitive Marketplace
Whistler, BC
Whistler Blackcomb has traditionally been one of the premier mountain biking destinations in
North America. The region boasts cross-country and paved bike trails in addition to the largest
downhill bike park in North America. The bike park was developed by Gravity Logic, who were
also strategic in the development of the bike park at Winter Park Resort. Programming around
biking and trails has made Whistler a biking destination. In fact Crankworx Whistler Freeride
Mountain Bike Festival is one of the best attended events in Whistler, with better attendance
than any winter event.
Eagle, CO
New initiatives in Eagle intended to increase tourism in that part of the county are focused on
biking. Improvement efforts include developing new trails, connecting trails among various
communities within the county, and emphasizing the cool temperatures and dry climate to
allow cyclists to ride during more months of the year, as well as the more affordable amenities.
Fruita, CO
Fruita is home to an extensive network of mountain biking trails, which include the Colorado
National Monument and trails that cross over to Utah. There are trails for all ability levels, and
road biking is also present in the area. Fruita is recognized as a regional biking destination;
however, the area still has not developed significant tourism infrastructure and relies heavily on
camping as a form of lodging.
IrzI
Steamboat Springs
Steamboat is nicknamed "Bike Town USA", partly due to being recognized as one of eighteen
US cities with a gold level Bicycle Friendly Community in 2013. According to the Steamboat
Chamber, biking in Steamboat includes cross-country, downhill, road biking, bike parks, and
snow biking, offering a wide variety of activities and events for bike enthusiasts. Steamboat
also offers special lodging/ticket/rental packages for visitors to "Bike the 'Boat"'.
Gunnison -Crested Butte
Tourism materials focus on both road biking and mountain biking. For road biking, the
Gunnison -Crested Butte Tourism Association stresses the abundance of opportunities in the
area as well as participation in special events like the USA Pro Challenge. Crested Butte
Mountain Resort is called the birthplace of mountain biking and is home to the Evolution Bike
Park, with trails for all ability levels. Mountain biking is also available in other areas of the
region.
Winter
Background
Winter tourism and recreation has been and continues to be one of the primary drivers of
economic development in the Fraser Valley. The dominance of winter tourism in the current
economy of the Fraser Valley has created a distinct seasonality to the economy. Nowhere is this
more evident than in the taxable sales collection in the Town of Winter Park, where the winter
collection (November —April) eclipses summer (May — October) collection by 133%. The Town
of Fraser experiences similar swings; however, the mixture of businesses in the Town of Fraser
is such that the swings are not as noticeable as those in the Town of Winter Park.
From the visitor survey of the Grand Profile, the winter guest tends to be an overnight guest
that stays an average of 4.6 nights in Grand County. While the winter visitor is predominantly
an overnight guest (70 percent), the close proximity to the Denver Metropolitan area allows the
Fraser Valley to pull visitors both regionally (from the Front Range markets) and from
destination markets such as Texas. This creates a unique visitor mix for the region that is rare
to find in winter mountain resort destinations.
Current Situation
Winter tourism is anchored by several winter recreational activities. One of the primary drivers
of winter tourism is downhill skiing or snowboarding which are offered at both Winter Park
Resort and Ski Granby Ranch. In addition to downhill skiing/snowboarding, snowmobiling,
backcountry skiing/snowboarding, tubing, sledding, cross country skiing, dog sledding, hot air
ballooning, snowshoeing, and disabled programs are accessible in the Fraser Valley. While not
offering downhill skiing or snowboarding, Snow Mountain Ranch (YMCA) and Devils Thumb
Ranch offer winter guest experiences that round out the offerings of the Fraser Valley.
25
The Fraser Valley benefits from having one of the largest ski resorts in North America in its
backyard. Winter Park Resort, which has been in operation over 75 years, was recently rated as
the 15t" top resort in North America by SKI Magazine. Over the past three seasons, the resort
has been improving its overall standing in the resort ratings. The resort is recognized by skiers
and snowboarders as being accessible, providing good value, having kid -friendly activities, and
highly rated terrain parks.
The host of winter recreation activities as well as the unique customer base create a dynamic
where the Fraser Valley competes with both destination resort communities as well as regional
resort communities. This visitor mix has benefited the community with a more diverse
customer base than other resort communities, which has allowed the Valley to activate one
market (destination or regional) over the other in low snow years or economic downturns to
drive visitation.
While the visitor mix create opportunities within the Fraser Valley, it also has created some
seasonality of business within the winter months. According to the respondents of the Grand
Profile Business Survey, businesses cited seasonality of business as one of their primary threats.
Increased visitation are associated with several peak demand periods (holidays and peak
season weekends) can stress the economy of the Fraser Valley; however, the Valley struggles to
drive visitation during non -peak periods (midweeks, early, late seasons).
Thus, the Fraser Valley has the opportunity to continue to refine its winter tourism strategy. In
particular the entities of the Fraser Valley could look to drive off peak visitation or continue to
evolve the visitation mix to introduce the unique offerings of the area to new guests.
Competitive Marketplace
Summit County, CO
Like the Fraser Valley, Summit County, CO has an economy that is dominated by winter tourism.
The county takes in over sixty percent of its taxable sales in the winter months (November —
April). Winter visitation is dominated by 4 distinct ski resorts (Arapahoe Basin, Keystone,
Breckenridge, and Copper Mountain). Loveland and Vail Mountain are also proximal to the
county. Summit County has a unique mix of destination resorts and regional resorts, and like
the Fraser Valley benefits from being proximal to the Denver Front Range markets. Summit
County, CO is a direct competitor to the Fraser Valley not only in the regional markets but also
in some key destination markets, particularly those in the Midwest and Texas. Some of the
resort communities within Summit County have been able to develop ties to destination
markets via a second home market that is not as heavily dominated by Denver Front Range
purchasers.
Steamboat Springs, CO
Like the Fraser Valley, Steamboat Springs has one large and well -recognized resort in its area.
Steamboat was rated in the top ten of the western resort ratings by SKI Magazine. The resort is
owned and operated by the same operating company of Winter Park Resort and synergies have
26
been created between the two resorts through season pass and lift ticket offerings. Steamboat
is more remote from the Denver market than the Fraser Valley and thus does not enjoy the
benefits of regional day visitation. However, the area does generate significant overnight
visitation which impacts business operations differently than in the Fraser Valley where the day
visitation creates added complexity and variability.
Park City, Utah
Park City, Utah benefits from its proximity to Salt Lake City. Unlike like the resort communities
in Colorado, Park City can be accessed from the Salt Lake City airport in under 1 hour. While
the resort community is near a large metropolitan area, it benefits from significant destination
visitation generated by the ease of access through the airport. The resort community is
currently undergoing significant change. Vail Resorts has taken over management of both
Canyons Resort and Park City Mountain Resort in the past two years. The resort operator is
combining the two resorts into what has been deemed the largest resort in the United States.
In addition to this new resort; Park City is also home to Deer Valley Resort. The offering at both
Park City Resort and Deer Valley, as well as the events (i.e. Sundance Film Festival) combine to
make Park City a competitor in the destination winter vacation space.
Events
Situational Analysis
The Fraser Valley boasts a variety of special events throughout the year, with each event falling
into one of several categories. The number of categories is reflective of the intent to attract a
diverse group of visitors. Signature events held in the Fraser Valley include:
I►AFl
Event offerings in the Fraser Valley are particularly strong in the recreation and
music/entertainment categories and appeal to locals and visitors alike; however, additional
events pertaining to food and arts and culture could be considered in the future to round out
the offerings. The Fraser Valley Metropolitan Recreation District also provides a growing
number of sports recreation evens that should continue to be encouraged.
Competitive Marketplace
Aspen Snowmass
Events listed on the Aspen Chamber website include winter mountain events such as the X
Games, arts and cultural events like the Aspen Arts Festival, and food and beverage events such
as the Food & Wine Classic.
Steamboat Springs
Western-themed events are prominent in Steamboat, like the rodeo series, Hot Air Balloon
Rodeo, and Wild West Air Fest. The Chamber website also lists race events such as the USA Pro
Challenge and the Steamboat Marathon.
Telluride
Telluride is perhaps most well-known for its summer music festivals, including the Telluride
Bluegrass Festival, the Telluride Jazz Festival, and the Ride Festival. Other events focus on local
food and beverage and recreational opportunities.
Vail
Vail is home to a variety of music, film, arts, and cultural events like the Vail Summer Bluegrass
Series, Bravo! Vail, and the Vail International Dance Festival. The extensive list of events also
includes food and beverage events, for example Gourmet on Gore and Reds Whites & Brews, as
well as mountain events like Pink Vail and Spring Back to Vail.
Brand
Situational Analysis
The Fraser Valley is branded as "Colorado's Favorite Playground" and aims to attract visitors
with its proximity to Denver, variety of activities and events, status as "Mountain Bike Capital
USA TM11, and the general authenticity and comfort of the area and friendliness of its residents.
A branding study conducted in 2012 identified two key visitor segments: Front Range visitors
and destination visitors. The Front Range visitors generally travel to the Fraser Valley for
activities, affordable accommodations, and convenience. Affordable lodging and convenience
also appeal to destination visitors, but these visitors intend to come primarily for the natural
beauty. Therefore, the Winter Park & Fraser Chamber seeks to stress the abundance of things
to do, natural authenticity, and quality of stay to attract potential visitors and guests.
Competitive Marketplace
Aspen Snowmass
The Aspen Chamber markets the area as a "world class destination" that is perfect for outdoor
adventurers as well as arts and culture enthusiasts. The marketing also stresses the small town
atmosphere but big city amenities available in Aspen.
Gunnison -Crested Butte
The Gunnison -Crested Butte region is called "Colorado's Last Great Ski Town", by the Gunnison -
Crested Butte Tourism Association with descriptors like "authentic", "unspoiled", and
"unpretentious", which emphasizes that Gunnison -Crested Butte is not a glitzy mountain resort.
Opportunities are abundant for both relaxation and adventure.
Steamboat Springs
Steamboat Chamber marketing stresses the combination of Western culture and outdoor
adventure in the town, providing a laid back experience in the "heart of the Colorado west".
Promotional materials also emphasize the unique downtown area and numerous events
occurring year-round.
29
Supporting Documentation
Averill, Graham. "Mountain towns capitalize on the cycle tourism book". Mountain, Early
Summer 2014 Edition.
Benzel, Lance. "Stunning views and abundant trails await visitor who discover town near Vail".
The Gazette, July 24, 2015.
McDonald, Kelli. "Town of Vail Special Events" C.A.S.T, Dillon, CO, January 23, 2015.
Winter Park & Fraser Chamber of Commerce Branding Development Study (2012)
Grand Profile Visitor Analysis, 2015.
30
Economic Development Goal Overview: Support Existing Businesses
while also Strategically Recruiting Businesses to the Fraser Valley
Surveys conducted in 2015 as a part of the Grand Profile and the Strategic Economic
Development Plan both identify support for a two pronged strategy that would offer support
for existing businesses while selectively recruiting new businesses. The survey respondents
were clear that they favored "balanced" efforts to address both types of strategies rather than
singling out one segment, i.e. either existing or new businesses, for singular attention.
Specific findings from the survey research show the following:
Figure 1
[Thinking about the efforts to support business, which of the following best describes your opinion?
Both existing and new
business development 68%
should be pursued at the s..
Support expansion of
existing businesses should 21%
receive primary attention
Attraction and development
of new businesses should 11%
receive primary attention
0% 5% 10% 15% 20% 25% 30% 35% 40% 45% 50% 55% 60% 65% 70% 75%
Percent Responding
Source: Fraser valley Strategic Economic Plan Survey, 2015
Actions
Business Retention
• Provide local businesses with information resources to encourage expansion and
competitiveness. Insure that the towns have readily available information, including the
available community data such as the Grand Profile, to explain and express support for
businesses in the community
• Designate a shared business development function/position within the Winter Park &
Fraser Chamber to encourage the retention and expansion of existing employers in
cooperation with, and funded by, the two towns. This individual would serve multiple
roles on behalf of the Towns of Fraser and Winter Park, with responsibilities that include
being a business resource, an advocate, and a dedicated individual within local
government to align, oversee and implement economic development strategies as
determined and prioritized by the respective Town elected officials
• Review existing regulations and fee structures in the communities to insure consistency
with policy intent. Conduct a regular assessment survey of Iota[ businesses, built upon
the Grand Profile, to gather information on potential expansion and contraction as well
as needs and opportunities
• Support efforts of local employers to obtain a trained and skilled workforce, while
recognizing that this action requires continued attention to attainable housing (see
Housing Strategy above)
31
• Expand the Commercial Enhancement Grant Program in both communities with a
targeted grant amount each year that is designed to grow the reach of the program
from current levels
• Continue to make downtown improvements in both Fraser and Winter Park to enhance
the sense of community identity and a sense of progress and attention to quality
• Collaborate with existing entities and/or initiatives, as appropriate, to provide resources
for business expansion and retention
• Implement the integrated brand platform through all messaging under business
recruitment (see brand platform below)
New Business Development
• Develop cooperative relationships and cultivate a network of appropriate referral
resources for emerging companies that includes basic industries from the Front Range
such as marketing, finance, intellectual property and technology. This action is generally
not intended to encourage relocation of these companies; rather, the strategic efforts
will be directed at creating an awareness of Grand County as a lifestyle choice for
growing companies and professionals, and particularly for the millennial age segment
(aged 18 to 34 in 2015). The effort could include fostering the creation of appropriate
work spaces, support services, and a refined brand message that could be something
like, "You live on the Front Range, come play and work from the Fraser Valley"
• Attract diverse employers that contribute to the overall quality of the communities
• Recruit location neutral businesses and/or professionals
• Initiate a program to use community events (i.e. concerts, cultural, sports, etc.) as a
place for business recruitment
• Identify missing retail or professional service companies and provide this information to
residents and visitors using available sources to develop a list of target businesses
• Coordinate efforts with those in the Grand County Office of Economic Development and
local realtors/commercial real estate owners to encourage publicity and use of the
Grand County site selection tool to catalog available vacant land/store fronts
• Implement the integrated brand platform through all messaging under business
development (see brand platform below)
Business Friendly Brand Development
• Develop an integrated brand that incorporates the dual ideas of business retention
and recruitment. Messaging for business retention should stress the quality of life
and business opportunities presented by the Fraser Valley. Messaging for business
recruitment should reinforce the Fraser Valley brand and the identities of the towns
of Fraser and Winter Park as a means of communicating the quality of life, growth
opportunities, accessibility and the shared vision for the region. Consistent
marketing messages should be developed to support the brand platform.
Develop a consistent marketing message as part of the brand platform that stresses
the quality of life and business opportunities presented by the Fraser Valley. This
message will be framed using information obtained from the community data
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sources such as the Grand Profile stressing recreation, safety, locational advantages
including access to Denver International Airport relative to other mountain towns, a
small town lifestyle, a supportive business environment, etc.
• Create a shared website to promote business retention and expansion, as a new site
targeting the Fraser Valley specifically and work with the Colorado Office of
Economic Development and International Trade for business retention/expansion
program support
Situational Analysis
The Grand Profile Business Survey documents perceptions among existing business owners and
operators that Grand County (and the Towns of Fraser and Winter Park) is a difficult setting for
conducting business. About half of survey respondents saying it is "much worse" (7%) or
"somewhat worse" (44%) for business than other Colorado mountain communities.
The Grand Profile survey also indicated that finding qualified employees, employee turnover,
and having the appropriate location/space for business were all specific problems that are quite
widely experienced. Further, in a separate survey question, the "ease of doing
business/regulations" was one of the lower rated aspects of doing business in Grand County.
Taken together, these are areas where efforts by the towns, and increased sensitivity by local
officials, could provide improvements in the business climate that could support successful
operations by local businesses. Further, to the extent that recruitment efforts take place, the
survey results identify these as areas of relative weakness that would likely be of potential
concern to new businesses that are considering locating in the Towns.
Additional findings from the surveys provide quantification of business owner and resident
actions and priorities. In an important finding, survey results show that the majority of current
business owners report starting their businesses in Grand County (64%), as opposed to moving
the business to the County (10%). This provides an indication of current circumstances and the
relative rarity of new established businesses coming in from outside the County.
Figure 2
How Grand County business was started
Start this business in Grand County Take over an existing Grand County Move this business to Grand County
business
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d 40 %
20%
m 0
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Source Grad Profile Business Survey 201e. RRC Associates
The survey also provides insight on employment related issues in the area. While "lack of
qualified employees" is most frequently identified, seasonal swings, higher wages elsewhere,
and affordability of housing were all frequently rated as challenges. These issues identified by
33
the business community provide some prioritization of topics that should be supported by local
initiatives and they tie directly to a number of the identified Actions as stated in this Plan.
Figure 3
Employment Issues — Grand County Overall
Potential Access to
No difficulty Quality of
Lack of qualified Seasonal swings employees can Affordability of kee in ositions Rural, mountain Lack of public Availability of childcare I early educational
employees in staffing receive higher housing p filled location transportation housing childhood system
wages elsewhere education
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elm
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Stakeholder Interviews and discussions with local officials suggest that, in the opinions of some,
current efforts to support business do not go far enough. However, there are also indications
that some of the recent initiatives show promise and receive strong support. For example, the
Commercial Enhancement Grant Program in Winter Park, and a similar program in Fraser are
showing promise and there is support for expanding such efforts to get direct, visible
improvements in local businesses underway. Further, there is a belief there could be more
done to encourage "downtown" vitality and pedestrianization. Slower speeds through the
towns, improved highway crossings, and other potential efforts to enhance the look and feel of
unified business (shopping) districts are all mentioned as potential areas for cooperative
efforts. While it is recognized that many of these types of physical design enhancements
traditionally might fall under the auspices of the local planning or community development
offices, in the Fraser Valley these programs will also be considered a part of the overall
economic development strategy, with specific actions identified to further improvements in the
town shopping areas.
A review of economic development activities by towns, counties and marketing organizations
throughout Colorado and the U.S. indicates extensive efforts at all levels of government.
Strategies to support existing businesses, and to recruit new, are long-established with many
highly evolved programs being tried throughout the country. While such efforts are less
established in Colorado mountain communities there are, nevertheless, examples of flourishing
programs with positive results. The recruitment environment is also highly competitive and as
a result, many locales have dedicated significant financial resources to such efforts, further
raising the costs of competition.
The business recruitment and support environment sometimes differs in Colorado where
quality of life opportunities, and the ability to market to visitors as well as residents, creates
special opportunities. The result is often highly integrated programs where multiple
jurisdictions and agencies are working together toward mutual goals. This is the general
approach that is being suggested in this Strategic Economic Development Plan for the Fraser
Valley. Several case studies have been identified below that represent examples of these types
of programs in other Colorado communities.
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Actions in Support of Business Retention and Recruitment
As shown above, there are a number of specific actions that have been identified to further
economic goals related to business development. Most of these are interrelated with one
another (for example, Transportation, Attainable Housing, and Enhanced Broadband Services
availability) all combine to improve conditions of Business Retention/Recruitment. The
opportunity to enhance the business brand of the Fraser Valley, and to develop complementary
marketing strategies, has also been identified. These efforts should take into account the
priorities of the business community and current residents as measured through the Grand
Profile surveys. Brand reinforcement and marketing efforts will likely be most successful by
communicating information locally obtained. These programs would stress recreation and the
extensive trails network, safety, locational advantages relative to many other mountain towns,
a small town lifestyle, a supportive business environment and an overall positive quality of life.
Case Studies
Eagle County and the Towns of Vail and Eagle, CO
The Economic Council of Eagle County and the Vail Valley Partnership are two organizations
that have played leadership roles in Eagle County, Colorado. Dating back to post recession
actions (2008), the organizations have worked on a variety of efforts that are based on six core
objectives "developed to position Eagle County's economy for long term success:
1. Build a Business -Friendly Eagle County
2. Create and Market an Eagle County Business Brand
3. Retain, Grow and Recruit Businesses
4. Protect our Natural Environment
5. Expand Opportunity in our Leading Sectors (Tourism and Recreation, Health & Wellness
and Creative Industries)
6. Provide Support for a Quality Workforce (Affordable Housing, Education, Transportation
and Health)
The County Plan is designed to "supplement and support (not replace) municipal level
economic development efforts." In other words, in Eagle County, economic development
planning begins at the County level, and is complimented by significant efforts by the towns.
(Note, this approach generally parallels the efforts in Grand County where the Grand Profile,
and efforts by Grand County Economic Development (GCED) was created in 2012 out of the
identified "value of a thriving economic environment that retains, expands and attracts
businesses in Grand County.") The Eagle County Plan is a 35 page document that spells out
specific initiatives that will be pursued to address the identified Objectives as stated in the Plan.
Programs in Vail and Eagle, CO
Importantly, strong efforts have occurred at the local level as contemplated by the County Plan.
For example, the Towns of Vail and Eagle have developed municipal- based programs that merit
some consideration as Winter Park and Fraser consider future programs and the competitive
environment.
35
Within the Town of Vail, an identified staff position titled Economic Development Manager in
the Office of Economic Development was created in 2007. This individual oversees Economic
development initiatives that are identified as "critical to sustaining a vibrant economy in Vail."
The Economic Development Division was added to lead marketing activities and research with
the goal of attracting business to Vail to provide a year-round economy. This individual also
coordinates efforts by other local organizations including:
• Vail Economic Advisory Council
• Vail Local Marketing District Advisory Council
• Commission on Saecial Events
• And oversees research such as the Mountain Travel Market Update June 2015
The efforts in Vail are directed at initiatives that extend beyond tourism and have provided an
ongoing support system for integrated programs that address health care, quality of life and
future marketing and positioning opportunities. Further, the coordinative role, helping to
ensure that the multiple players in the economic development space, are communicating and
coordinating presents a worthy model for consideration in Grand County. The Town of Vail
developed the Vail Economic Development Strategic Plan, December, 2008 which contains a
Work Plan (see pages 11 to 30) that has guided subsequent economic development efforts over
the past seven years. That Plan identifies Goals, Objectives and Actions, as well as timelines
and responsibilities for various actions. This Plan and the overall program in Vail represents
one of the more highly "evolved" examples of integrated economic development activities in a
mountain town.
Similarly, in the Town of Eagle, also in Eagle County, there have been focused efforts to "drive
dollars into our economy, benefiting existing businesses (1), and bringing in new businesses (2).
This effort has been championed by the Eagle Chamber and has resulted in coordinated efforts
with the County, attention to the central business district in Eagle, launching a CoWorking
feasibility study for Eagle, and highly targeted efforts to publicize mountain biking in Eagle.
These programs have resulted in improved stature and visibility for the Town and, arguably, a
very rapid increase in "buzz" around the state concerning mountain biking and the overall
quality of life in the small town that exists in the shadow of Vail and Beaver Creek.
Subsidy and Shared Revenues: the Eagle/Gypsum Agreement on Costco
There are a variety of tools that are used by communities to encourage various forms of
business recruitment and relocation. One example was the location of a Costco store in
Gypsum, CO. An agreement was created to encourage the location of the store in Gypsum near
the Eagle Airport with joint cooperation from the two adjacent towns. At the time the store
went in, there was limited development other than the airport in the immediate vicinity of the
store, and the location was relatively removed from both adjacent towns, but the store was
proposed for zoned land in Gypsum.
Typical of subsidy programs, the specifics of the Costco deal are somewhat complicated and
they were originally negotiated quietly behind closed doors. Gypsum and Eagle created a
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revenue -sharing agreement in 2007 that split unencumbered sales tax revenues from the
Costco retail block roughly 60% Gypsum and 40% to the Town of Eagle for a period of five years.
However, the arrangement included a requirement that Gypsum earmark some of the sales tax
for law enforcement and the Gypsum Recreation Center debt (the "encumbered" portion)
resulting in Eagle receiving about $16 for every $100 in sales tax revenues at the Costco site in
2011.
The original agreement expired in 2011. It called for the Town of Gypsum to rebate to Costco
38% of the sales tax generated by Costco for three years, or until a $4.2 million cap was
reached. When the original revenue cap wasn't met in three years the town rebate dropped to
15% of the sales tax for an additional two years. This agreement was extended in 2012 for
another five years at the 15% rebate level, although the payments to Eagle expired resulting in
more revenue to Gypsum (estimated at an additional $400,000 sales tax) according to an article
in the Vail Daily dated 10/31/2012.
Co Working Facilities and Services
Additionally, efforts by the Chamber and other Eagle representatives have helped to develop a
coworking opportunity in Eagle. As described by the Eagle Chamber, CoWorking is a solution to
the problem of workplace isolation faced by many independent, freelance and telecommuting
workers. It offers a "low-cost and flexible business presence, in connection and collaboration
with others, in a community of innovation, ideas and talent."
There are now similar spaces in Frisco (two competing facilities, evo3 and ELEVATE coSpace),
and a mountain coworking alliance has created reciprocal memberships in Park City, Tahoe, and
Jackson Hole, etc. The idea of these types of spaces is growing rapidly and has particular appeal
for millennials that appreciate shared work space and a collaborative environment, as well as
the flexibility of living and working in a setting suited to an active lifestyle and work/life
balance. Additionally, these spaces may also have appeal to second homeowners and visitors
that may find it attractive to work from Grand County, increasing the likelihood of converting to
longer stays, mid -week stays and perhaps year round residency.
Firestone
A number of other smaller communities in Colorado, and particularly along the Front Range
have created aggressive economic development programs. Firestone, a small but rapidly
growing town in Weld County north of Denver has targeted economic development with some
success. It was the fastest growing community in Colorado between 2000 and 2010 with a
432% increase in population. The town's website states:
"Firestone has a strong focus on business and economic development in an effort to
provide new jobs and provide additional goods and services for Firestone residents.
Economic development also increases the Town's tax base, which helps keep taxes low
while providing necessary public services."
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In order to facilitate business development, the Town utilizes an economic development
committee to assist and communicate with the business community and to facilitate the
processing of development applications with fast track scheduling as may be necessary.
A stated objective of Firestone of encouraging new jobs to provide additional goods and
services to residents is an element of the program that is notable. Further, the use of an
"economic development committee" represents an approach that is common in successful
communities that have chosen to target certain types of economic activity.
Supporting Documentation
Grand Profile Business Analysis, August 2015.
Fraser Valley Strategic Economic Development Survey, September 2015.
Vail Economic Development Strategic Plan
M
The Fraser Valley Economic Development Framework Overview
The Strategic Economic Development Plan was designed using a framework that would
continue to foster the synergies between the Towns of Fraser and Winter Park and the
supporting entities. In addition it was designed to build upon the tools and metrics used in the
development of the plan. A brief explanation of the identified framework is presented below.
• The towns and supporting entities of the Fraser Valley recognize that improving the
quality of life in the valley is a key component of local economic vitality. This
consideration is being addressed through community development efforts by the
towns that include actions related directly to economic development, as well as
peripheral actions that will further broad community objectives. This Strategic Plan
anticipates that the economic development actions identified herein will be tied to
other ongoing community development activities and that the communities will
continue to plan and invest in ways that improve the communities for residents and
visitors alike.
• The towns and supporting entities of the Fraser Valley will work together to develop
effective metrics to evaluate each economic development goal and their respective
actions as outlined in the Strategic Plan. These metrics will also extend to a
commitment to keep the data of the Grand Profile up to date, as the Grand Profile.
The metrics and updates are outlined for each goal in the respective Progress &
Updates sections.
• The towns and supporting entities of the Fraser Valley will work together to better use
existing resources to further economic development opportunities.
Actions:
• Continue joint meetings on a periodic basis to enhance communications and
coordination.
• Pursue opportunities for joint funding of initiatives with particular attention to
the Actions identified in this Plan.
Strategy Overview: Mutual cooperation between the Towns of Fraser and Winter Park, with
the potential for more formal Intergovernmental Agreements at some time in the future.
This discussion provides an overview of Intergovernmental Agreements as a means of formalizing
municipal (or other entities) cooperation for mutual benefit. In instances where entities work together
there is often an opportunity or need to formalize the basis of the relationship and commitments. Over
39
time, the cooperation between the Towns of Fraser and Winter Park may evolve to a point where a
mutual understanding, in the form of agreements, may become appropriate.
This document is for discussion only at this time; the documentation of agreements, and the specificity
of commitments between the towns will evolve with the pursuit of the actions identified in this Plan.
Background
An Intergovernmental Agreement is an agreement made between two or more governments in
cooperation to solve problems of mutual concern. IGAs are created for a myriad of purposes,
including development review, land use planning, and resource sharing. The agreements set
forth the purpose, power, rights, obligations, and responsibilities, financial and otherwise, of
each party to the agreement.
Agreements between two or more local governments to address regional issues are a common
practice in Colorado. In a 2004 local government land use planning survey, 67 percent of
Colorado counties reported using IGAs, up from 46 percent in 1992. By 2004, 57 percent of
Colorado's municipalities had adopted a land use IGA.
IGAs are often made to create solutions between neighboring jurisdictions competing for
employment centers, tax revenue generators, highway interchanges, or real estate. IGAs can
include a multitude of collaborative efforts and negotiations. Revenue sharing is one form
which several communities in Colorado have utilized to solve development disputes. Examples
include the IGA between the City of Louisville and the Town of Superior and the IGA between
the City of Thornton and the City of Westminster. While in theory they require little capital to
initiate, IGAs, and in particular revenue sharing IGAs, can be controversial and challenging to
negotiate when multiple entities are invested first and foremost in their jurisdiction's benefit.
Current Situation
Municipalities in this area have had a history of governmental collaboration. The Fraser Valley
Metropolitan Recreation District (FVMRD), for example, was established in 1979 as a joint effort
among Grand County, the Town of Fraser, and the Town of Winter Park. It operates several
recreation facilities, including the Grand Park Community Recreation Center, Pole Creek Golf
Course, and Fraser Valley Sports Complex. The District extends from the Town of Winter Park to
the Homestead Hills Subdivision, and encompasses approximately 92,160 acres. FVMRD is
considered a quasi -municipal government agency but unlike municipalities, property tax is its
only tax revenue mechanism. It is funded by a district mill levy of 7.096 mills. In 2014, the
District collected $2,019,815 in total tax revenue.
An IGA between the Town of Fraser and the Town of Winter Park was signed in 2006 to form
cooperative strategies for sharing common resources and directing mutually beneficial growth.
In recent years, the towns have been able to cooperate to mutual advantage in several areas,
including establishing a combined police force and municipal court. An IGA Working Group has
since been formed to propose additional forms of cooperation. Another notable project is the
40
combined effort put into developing the Fraser River Trail, a 5-mile, multi -use greenway
connecting the towns. The Fraser River Trail not only connects runners and skiers between the
two areas, but also helps to mitigate negative impacts to the ecosystem of the Upper Fraser
River. Costs for the trail project were mutually shared and partially supported by grants,
including several contributions from the Colorado Lottery.
The Working Group has also considered more aggressive ideas, including annexation of Fraser
by Winter Park and full consolidation. The group analyzed seven specific topic areas with
respect to each of the four alternatives listed above: general government and personnel;
political representation; zoning and land use; special districts; public works; public safety and
municipal court; and finance and budget. Although both towns decided to take no immediate
action on either annexation or consolidation, the report identifies the potential for enormous
opportunities in future cooperation between the two towns. The Town of Fraser and the Town
of Winter Park continue to schedule interjurisdictional coordination meetings.
Case Studies
City of Louisville and Town of Superior IGA
In 1997, the City of Louisville and its neighbor to the south, the Town of Superior, entered into a
number of IGAs to address interchange improvements, library services, and revenue sharing. Of
particular interest to Fraser and Winter Park is Louisville and Superior's structure of the
revenue sharing IGA. The revenue sharing IGA identifies adjacent properties in both
communities, primarily in the Highway 36 corridor, and stipulates that as these properties
develop, sales tax revenues generated from the sites are split equally between Louisville and
Superior.
Plans for Superior Town Center, a development with 1,400 residential units, a 500-room hotel,
office space, and over 440,000 square feet of retail and commercial space, were introduced in
2013. The proposed center, for which Louisville ceded 80 of the 157 acres, is an example of a
development which qualifies for revenue sharing between Louisville and Superior under the
IGA. Based on the planned retail square footage, each jurisdiction is slated to earn
approximately 1.0 million dollars per year at buildout.
Thornton and Westminster IGA
Thornton and Westminster signed an IGA in 1986 to address retail competition in the 1-25
corridor. Under this agreement, sales and property tax revenue generated in a defined area
along the 1-25 are shared between the participants. For sales tax revenue, the city where the
sale occurred retains one-third of all receipts. The remaining two-thirds of sales tax revenue are
divided between the two cities based on their respective sales tax rates. This percentage
allocation is determined by dividing each city's tax rate by the sum of their combined tax rate.
Property tax revenues are shared in a similar fashion, whereby each municipality receives a
percentage share of the total property tax receipts for the corridor area equal to its
contribution to the sum of the mill levies for the two municipalities. There have been several
41
iterations of the original IGA since its establishment. A new IGA was approved in 2015
amending the last version from 2006 to include shared responsibilities of all right of way
maintenance associated with the two interchanges including snow and ice control, street
maintenance, traffic signal maintenance, and landscape maintenance.
Fraser Valley Opportunities
The Fraser Valley economy extends beyond the boundaries of the two towns to the entire
Valley. Given the relatively small size of each town, there are obviously opportunities for
economies of scale that provide a reason for working together on many issues, as they have in
the past on the topics reviewed above. The Working Group has even broached the subject of
full consolidation in the past. While there are considerable challenges to full consolidation,
Fraser and Winter Park can build upon its past successes with the Fraser -Winter Park Police
Department, Fraser River Trail, and Municipal Court to pursue other partnerships.
One subject worth discussing is retail competition. Until recently, most of the tourism oriented
retail and restaurant space was located on Main Street in Winter Park and most of the year-
round community oriented retail uses were located in Fraser town center. The Winter Park
Resort has recently added retail uses at the ski area base and on the other end of town near the
border. Additionally, Fraser has added community retail uses including the Foundry Cinema and
Bowling Alley. Winter Park is also considering retail development on the Sitzmark property.
Given their close proximity, it would serve the two jurisdictions well to establish a larger
commercial district on the border of the two towns. These commercial uses draw their sales
from both towns and it may be mutually beneficial to structure a commercial district within
which the towns would agree to share sales tax revenues for development. This could
potentially reduce competitive issues around the impacts of new development and foster a
more regional approach to improving the Valley's retail tenant base.
IAYJ
Additional Priorities
The survey instrument developed to support the Strategic Economic Development Planning
process identified support for additional strategies in August 2015. In light of the near term
focus of the Strategic Plan it has been determined that these actions will not be addressed as a
part of the Strategic Plan at this time. However, it is recommended that they be considered as
a part of future community and economic development efforts. These strategies are:
• Improve K-12 education opportunities
• Improve access to quality healthcare in the Fraser Valley
• Pursue advanced education opportunities for post -secondary students
• Increase the availability of early childhood education opportunities
• Focus on creating a quality of life that is attractive to younger generations
• Increase the availability of adult education opportunities
• Increase the opportunities for seniors
Supporting Materials Documenting Past Community and Economic Planning
Efforts
• Town of Winter Park Housing Needs Assessment, September 2015
• Fraser Valley Metropolitan District Needs Assessment (2014)
• Grand Profile (2014)
• Trails Plan
• Town of Winter Park Sitzmark Property Market Study (2013)
• Winter Park & The Fraser Valley Chamber of Commerce Branding Development Study
(2012)
• Town of Fraser Community Revitalization Partnership (2010)
• Fraser -Winter Park Joint Working Group (2007)
• Fraser Valley Retail Market Analysis (2004)
• Public documents available through Winter Park Resort
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