City Council Meeting Date: October 7, 2025
To: Mayor and City Council
From: Ben Martig, City Administrator
Emery John, Program Associate
Title
Public Hearing Related to Consideration of a Special Service District.
Body
Action Requested:
The Northfield City Council will hold a Public Hearing Related to Consideration of a Special Service District.
Note: See procedures in the summary report. Please note the Mayor will call the public hearing to order. The City Council will need to close the hearing with a motion and majority approval.
Summary Report:
The attached public hearing was called to hear input related to the proposed ordinance that would relate to the Special Service District petition received. The ordinance would only address the general framework of the special service district with other service contract and related cost details coming at a separate phase that would have a separate public hearing.
Public Hearing Procedure
A Public Hearing is used by the City Council to solicit the public's comments on various projects or City operation procedures.
A. The Mayor will open the hearing by identifying the subject.
B. Staff Presentation- staff will give a presentation on the subject.
C. Applicant's Presentation- not applicable. Staff is planning to have representation from the Friends of Downtown address the Council as part of the presentation.
D. Public Input- The public will have the opportunity to speak for or against the issue. The public may ask questions, make comments, voice support, agree or disagree with the issue.
1. The Mayor will recognize a speaker at the podium and comments/conversation will be between the Mayor and speaker; and between the Mayor and Council Members.
2. At the podium the speaker must give their name, address, and if representing a business, must give the name of the business or corporation. If an Attorney or consultant is representing a client, the client must be identified for the record.
3. Speakers will be allowed to speak a maximum of two (2) minutes per item (not including interpreter’s time, if applicable).
4. Speakers who have material to be handed out to the City Council will pass the material to the City Administrator. The City Administrator will then pass the information to the appropriate people. A minimum of twelve (12) copies are needed.
5. Persons cannot gift their 2 minute speaking time to other members of the public.
E. Questions or Clarifications from City Council - After the public input of the public hearing is completed, the City Council may request questions or clarifications prior to closing the public hearing. This section will be used when there are questions related to the topic on which the public hearing is being held. Questions should be succinct and avoid being rhetorical or leading in nature. Subsequent actions of the City Council provide for opportunities for further questions or clarifications from the City Council.
F. Any material to be entered into the record shall be noted. Any written communication presented to the City Council during a City Council meeting shall be read into the record or summarized for the record or simply delivered to the City Council, as the City Council may determine. They shall then be recorded in the minutes by title and filed with the minutes in the office of the City Clerk.
G. Motion to Close Hearing- The Mayor will state if there is an extension of time for public input into the hearing. If not, the City Council Members will make a motion, second, and vote of the City Council on closing the public hearing.
Background
Downtown business property owners submitted a Petition on August 25, 2025 for a hearing to establish a Special Service District and impose a service charge for coordinated snow and trash removal under Minnesota Statutes, Chapter 428A (the “Petition”). Approval of the adequacy of the Petition and setting the public hearing for October 7, 2025 was adopted via resolution at the September 9, 2025 City Council meeting. Notice of the hearing was mailed to property owners within the proposed special services district on September 10. The notice was also be published in the Northfield News on Wednesday, September 10 and Wednesday, September 24.
The Petition met the requirements in the statute for such a Petition, including that:
1. Owners of 25 percent or more of the land area of the property that would be subject to service charges in the proposed special service district have signed the Petition; and
2. Owners of 25 percent or more of the net tax capacity of the property that would be subject to a proposed service charge, based on net tax capacity, have signed the Petition.
The Finance Department calculated the land area and net tax capacity from County land records and those percentages are 56.2% and 32.1%, respectively.
This issue is complete, and the adequacy of the petition will not be of further consideration. The public hearing this evening is specific to the proposed ordinance.
Special Service District
Northfield’s historic and successful downtown commercial district is a prime candidate for the implementation of a Special Service District (SSD). Building and business owners complain about the lack of coordinated snow removal in the winter - especially with the inconsistency in snow clearance on Division Street sidewalks - and trash collection year-round, which is complicated with narrow lots and limited alleyways.
The potential benefits of an SSD in Northfield has been evident for some time, and this is not the first effort to formalize a district, although it is the first time a petition has been circulated. A 2020 consultant service contract between the City of Northfield and the Northfield Downtown Development Corporation (NDDC) included the requirement that a report be compiled about the appropriateness of a special service district for downtown Northfield. The report (attached) was presented to the council at the October 20, 2020, regular meeting. The report includes results of a property owner survey (21 respondents), indicating strong support for consistent snow removal/salting of sidewalks during the winter, and lower but significant support for the regular trash removal (dumpsters and/or trash cans) throughout the year. Other polled services included better signage, benches, landscaping, public art, marketing support, and additional parking options, none of which were supported at the time and a petition was not circulated.
When the NDDC became the Friends of Downtown Northfield and the organization and city became accredited members of the Main Street America program, interest in the concept was reinvigorated. For background on special service districts more generally, a report from the Minnesota House Research is also attached.
Additional research regarding interest in establishing an SSD was conducted during the Connecting Business and Community program. The implementation of that CBC program was in partnership with University of Minnesota Extension, the Northfield Chamber of Commerce, and the Friends of Downtown Northfield. Many downtown building owners expressed their interest in organized trash and snow removal. Additionally, many provided benchmark data on their individual fees associated with the services they now pay. In fact, one of the potential programmatic outcomes suggested in the draft report is implementation of a Special Service District.
The FODN have been the consistent champion of the petition process and have also advocated for a specific set of policy considerations to be factored into the ordinance. These include limiting the scope of services to snow and trash (and other refuse) removal, initiating the SSD for a pilot period, at which point the district would need to be re-petitioned, and adhering to proportional assessments to services rendered. In this case, that means linear feet for sidewalk snow removal and square feet for parking lot snow removal, and per-use or as-used trash fees. Additionally, the FODN advocates for an “advisory committee” comprised of building and business owners in and residents of the district, to assist the City Council in governing the district.
Snow Removal - In More Specifics
In this area, where sidewalks directly abut storefronts, and pedestrian space is limited, uncoordinated, or delayed removal can create accessibility limitations for those with mobility challenges, block entrances, and restrict visibility for businesses. A coordinated approach-whether led by the city or through public-private partnership-could ensure that snow is cleared consistently across the district, preserving walkability, ADA compliance, and public safety. It also can prevent uneven or piecemeal piles of snow that can damage building facades, hinder parking access, and reduce the attractiveness of the downtown for shoppers and visitors. By maintaining clear, accessible sidewalks and curb lines, coordinated removal supports local commerce, enhances the pedestrian experience, and reinforces the district’s role as a vibrant community hub, especially during the winter season when conditions might otherwise discourage downtown activity.
From an individual business owner’s standpoint, coordinated snow removal in a historic downtown district can present drawbacks. Business owners may face mandatory participation costs or special assessments to fund the service, which could be perceived as unfair if their particular frontage requires less attention or if they already handle snow independently. In some cases, owners are doing the snow removal themselves to reduce out of pocket expenses and adding new costs could have significant negative cost impacts to their operations. They may also lose flexibility over timing-if removal happens during peak customer hours, it could temporarily block access to storefronts, create noise, or cause inconvenience. Business owners also have voiced concerns over managed snow removal taking place before their business opens in the morning, as they are currently able to time removal to their specific needs. Therefore, those issues would need to be recognized or items to consider if they could be addressed or mitigated.
From the broader community, visitor, and shopper perspective, coordinated removal can also create short-term disruptions. Snow removal equipment may reduce on-street parking availability during operations, make sidewalks temporarily impassable, or create confusion if alternate pedestrian routes are not clearly marked. If snow is hauled away, there may be noise, truck traffic, or congestion that detracts from the downtown experience. Additionally, if the system is not managed equitably or efficiently, residents and visitors may feel frustrated that resources are spent on centralized removal while other neighborhood needs go unmet. Overall, while coordination has clear benefits, it can also introduce costs, disruptions, and trade-offs that need to be carefully managed.
Snow removal has clearly been of highest interest to explore and also more likely to be manageable in determining scope of service. Should this progress the first year of operation would be anticipated to be the 2026-2027 winter season.
Trash (including recycling, compost and cardboard) - In More Specifics
Coordinating trash services-including recycling, refuse, compost, and cardboard collection-within a Special Service District (SSD) in Northfield’s historic downtown presents both significant opportunities and notable challenges. Given the area's mixed-use character and zero property setbacks, where buildings directly abut sidewalks and public rights-of-way, traditional curbside collection methods often result in cluttered streetscapes, inconsistent service timing, and conflicts between pedestrian, business, and service needs. A coordinated approach through the SSD could streamline waste management, improve aesthetics, and reduce the visual and physical clutter of bins and larger dumpsters. This could enhance the downtown experience for residents, visitors, and businesses alike, aligning with Northfield’s goals for historic preservation, tourism, and economic vitality.
Moreover, centralized or timed collection, potentially in partnership with a single contracted hauler, could improve service efficiency, reduce costs through collective purchasing power, reduce vehicle traffic and emissions, and ensure consistent compliance with waste sorting standards. Businesses and residents might also benefit from reduced service costs through economies of scale and clearer communication channels via the SSD. However, such coordination also poses challenges. Implementation would require negotiation with multiple private haulers, adjustments to existing service agreements, and buy-in from a diverse set of stakeholders with differing needs and preferences. Physical space constraints may limit options for shared collection points, and historic preservation guidelines may restrict infrastructure changes like new enclosures or signage. Furthermore, managing equitable cost-sharing and service levels across varied property uses-such as restaurants, offices, and residences-would demand careful planning and administrative oversight. Ultimately, while the coordinated approach offers promising benefits for functionality and appearance, it must be thoughtfully designed to address logistical, regulatory, and equity concerns.
This is a more complex issue to address and is anticipated to be explored after snow removal is first determined if this would be appropriate. Anticipated schedule if this SSD is continued to be explored would be study in 2026 and implementation in 2027 at the earliest.
Proposed Ordinance
The Proposed Ordinance includes components that are required to be addressed per State Statute and some discretionary items included based on feedback received over time and customized in more recent discussions. The ordinance would create the legal ability to have a special service district. The final service details (for snow removal and trash management) would be worked out a future date and require a future hearing. Staff is suggesting to pause the ordinance consideration to provide more time to: a) work out more details on services and fees; b) address questions from public comment received at the hearing; c) build more awareness, education and participation by property owners, businesses and entities in the district. After that work was completed, no later than 6 months from the hearing, additional details would come back before acting on the ordinance or related services (which again requires another separate public hearing).
The proposed SSD ordinance would specifically only address coordinated snow and trash (including recycling, compost, cardboard) removal year-round. This selection of services is based on various surveys conducted in the past several years, which conclude a limited appetite for expanded services.
In meetings about the concept, building owners have been most intrigued by the benefits of a collective contract in lowering their costs. Other noted benefits include standardizing services across the district, specifically with respect to snow removal, to ensure safe passage for people of all ages and abilities throughout the downtown commercial district. Additional benefits to coordination include timing snow removal with the city’s street snow removal in order to reduce and/or significantly eliminate snow mounds piling up in parking spots, in pedestrian crossings, and in other parts of the right of way. Coordinated snow removal across the district also could allow for more direct coordination with City streets plowing and snow removal operations to conduct them more seamlessly together in the downtown area.
Next Step - Resolution & Services
The timeline is proposed to be revised from the September 9th meeting. In particular, rather than moving immediately into the ordinance to pause that to provide additional time to address specific questions on services. It would also allow time to see if added ordinance revisions would be appropriate.
These concepts and the concerns of property owners and business owners/operators in the proposed district have been attempted to be addressed in the draft ordinance. Many questions and concerns at this point appear to relate to additional details on costs and services which are intended to be further explored over the coming months.
Alternative Options:
Not applicable.
Financial Impacts:
N/A
Tentative Timelines:
ü September 9, 2025: Resolution Declaring Adequacy of Petition and Set
Public Hearing
ü September 10, 2025: Publish notice of hearing in official newspaper (1st
time)
ü September 10, 2025: Notices sent to affected property owners
ü September 24, 2025: Publish notice of hearing in official newspaper (2nd
time)
o October 7, 2025: Public Hearing - Ordinance
o October 7, 2025 - April 7, 2026: Within 6 months of the public hearing 1st and 2nd
readings of ordinance occur
o Ordinance takes effect: 45 days after publication of the ordinance
o To Be Determined Public Hearing Resolution on proposed services and
fees