HomeMy WebLinkAbout02-25-19 City Commission Packet Materials - A2. Direction on Preparing the Future Land Use Map for the Growth Policy1
REPORT TO: Mayor and City Commission
FROM: Chris Saunders, Community Development Manager
Martin Matsen, Director of Community Development
SUBJECT: Discussion and direction regarding preparing the future land use map for the
growth policy (Bozeman Community Plan) update.
MEETING DATE: February 25, 2019
AGENDA ITEM TYPE: Work Session (Policy Discussion and Direction to Staff)
RECOMMENDATION: That the City Commission give direction on four questions relating to the
future land use map to be included in the updated growth policy.
BACKGROUND: The City Commission funded an update to the city’s growth policy, the Bozeman
Community Plan. The Planning Board is working with the selected consultant to prepare the update.
During this process, four questions have been identified that will substantially shape the proposed future
land use map. Up to 50% of the planning area may potentially be affected. The purpose of this agenda
item is to receive direction from the Commission on how to move forward in preparing the future land
use map.
In accordance with paragraph 2.02.070.D, BMC, the City Commission will conduct a policy session to
discuss these questions and give direction to the staff for the preparation of the growth policy. No final
decisions will be made at the meeting. Once prepared, the draft of the growth policy, including revised
text and future land use map will be subject to substantial public comment opportunities. The Planning
Board and City Commission will each hold at least one public hearing prior to acting on adoption of the
new growth policy.
The four questions are:
#1) Shall the planning area be expanded to include the full area of the Rae water and sewer district
anticipating that with probable future municipal service provision will also eventually come
annexation to the City?
#2) When preparing the future land use map is it now time to simply plan for fully urbanizing the
entire planning area with the exception of areas with unique limitations such as conservation
easements?
#3) When preparing the future land use map should the Suburban Residential designation be used
again?
Commission Memorandum
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#4) When preparing the future land use map should the Business Park Mixed Use designation be
used again?
Planning Board Recommendation: The Planning Board considered these questions at their February 5,
2019 public meeting. Information regarding these questions is presented below after the Planning Board
recommendation. The video and minutes for that meeting are available
at https://www.bozeman.net/services/city-tv-and-streaming-audio. The Planning Board unanimously
recommended the following from the alternatives for each question:
#1) The Planning Board recommended alternative 3) Include the entire Rae service area within
the planning area.
#2) The Planning Board recommended alternative 3) Show most areas as some urban designation
and only use Present Rural for those areas with substantial utility service location restrictions
and/or substantial intent to maintain in non-urban character for the long term. They further
recommended that specific criteria be defined for when Present Rural will be depicted on the
future land use map and the nature of the designation be clarified.
#3) The Planning Board recommended alternative 3) Only show the Suburban Residential on
areas with an existing developed condition and substantial difficulties in extending municipal
services. They further recommended that specific criteria be defined for when Suburban
Residential will be depicted on the future land use map and the nature of the designation be
clarified.
#4) The Planning Board recommended revisions to the Business Park Mixed Use district
description to provide greater support for a broad range of mutually supportive use and that
related updates to the Business Park zoning district be completed.
State law requires several items to be included and authorizes a local government to include additional
materials. The required and allowed contents are established by the legislature. The local governing
body has substantial discretion in determining the scope of the content of the growth policy. The
intended document structure for the update is a simplified main document with attached appendices and
reports to take care of supporting information and analysis. Demographic and economic background
data and future needs analysis have already been completed. The material is available through the City’s
website. The existing growth policy is available on the City’s website
at https://www.bozeman.net/Home/ShowDocument?id=1074.
Discussion:
1. Planning Boundary – The SW corner of the existing planning area extends ½ mile west of Gooch
Hill Road from Blackwood Road to Valley Center Road. The portion of this area along Huffine Lane
has been included in the City’s land use planning area since 1972. The planning area includes the
historic area of the Rae Water and Sewer District (Rae) which is depicted in yellow south of Huffine
Lane and includes the location of the treatment facilities for the district.
That area has been included has been within the City’s water and sewer service areas since 2007. The
City’s planned utility improvements have been sized to provide the capacity needed for Rae. The Rae
service area has expanded to the west to include the area west of Gooch Hill Road where the Toyota
dealership and the Woodland Park subdivision are located. The County has adopted a neighborhood plan
in 2006 that includes all of the area considered for this questions this area. The plan depicts increasing
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intensity of use on its future land use plan. The Gooch Hill West plan is available online and includes
maps and text. A copy of the Gooch Hill West future land use plan is attached to this memo.
Figure 1: Current Future Land Use Area, Community Development viewer.
The expanded service area goes beyond the City’s present land use plan boundary. After discussion with
Public Works staff, Planning Staff finds that it will likely cause more problems to have the Rae area
partially included than entirely included or excluded from the planning area. The Aajker Creek drainage
zone in the sewer facility plan which will service this area shows a large 12-15 inch diameter trunk main
in Gooch Hill Road.
The same area showing the planning area west of Gooch Hill Road. The edge of the brown shade is the
current outer limits of the planning area.
The area shown in the image below in the blue shade is the functioning district service area and the blue
dots south of Huffine Lane is the total allowed service area. There is approximately 438 acres within the
Rae service area that is outside of the City’s planning area.
It is expected that at some future time the Rae system will finish its life cycle and need to connect to
Bozeman’s water and sewer systems. This is similar to what is happening to the Riverside district north
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of town. Bozeman’s utility systems have been planned with this possibility in mind. The newly
expanded areas of the Rae system would then be receiving services from the City of Bozeman. The City
doesn’t extend its utilities to allow connection without annexation.
Figure 2: Rae Sewer & Water service area (shown in blue dots or shading), Planning Coordinating
Committee web viewer showing county layers.
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Figure 3: The Rae district outlined in pink overlaid on the existing draft planning area outlined in green.
Question: Shall the planning area be expanded to include the full area of the Rae district anticipating
that with municipal service provision will also eventually come annexation to the City?
Alternatives:
1) Leave the boundary as is.
2) Remove the entire Rae service area from the planning area
3) Include the entire Rae service area within the planning area
Staff recommends Alternative 3.
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The next three questions all address how to designate future land uses. Collectively, these three
questions affect half of the total area on the future land use map. Therefore, these questions have
substantial impact on how the future land map is prepared. Should a designation be removed from a
location another alternate designation must be applied. Chapter 3 discussed land use with the full
descriptions of the various land use categories in Section 3.4 of the growth policy (Bozeman Community
Plan).
2. Present Rural land use designation – In the past two growth policies the City has shown as urban
area only that area needed to account for existing City limits plus the additional square miles of
urbanized area necessary to meet expected demand as projected in the document. Since this has been
less than the total area within the planning boundary the City has designated some areas to remain rural
until some future date. This was not a commitment that the City would never grow into those areas in
the future but just that it wasn’t ready to show it as an urban classification yet.
The description of this land use says in part “This category designates areas where development is
considered to be generally inappropriate over the 20 year term of the Bozeman Community Plan, either
because of natural features, negative impacts on the desired development pattern, or significant
difficulty in providing urban services. … As Bozeman develops over time, it is expected that the City
will expand outward into areas previously designated as Present Rural. As the City’s growth policy is
updated from time to time, some areas currently classified as Present Rural are expected to be
reclassified to urban designations. “
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Figure 4: On the
current growth
policy Future
Land Use map the
Present Rural
designation is
shown in the
brown shade on
the future land use
map.
You can find the map at https://gisweb.bozeman.net/Html5Viewer/?viewer=planning. This map will be
referred to for questions 2-4.
Click on the box next to the “community plan future land use” row to make it display on the map. A
table describing the amount of land in each future land use map designation is at the end of this memo.
As shown on the map, the distribution of Present Rural is not even. For example, the Story Hills area
makes up over 25% of all Present Rural designated land but is located in one defined area of the map.
The City continues to grow but the planning area has remained fairly consistent in size due to the
correlation with utilities planning and limitation on functional service areas. Therefore, as the City
grows the amount of non-urban area is shrinking. The City will continue to grow outward as well as up
into the future. The ability to predict future urban growth areas is limited. The choice to annex is largely
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made by the private land owners. Some are anxious to do so and develop and others have no interest in
doing so. Therefore, staff expects there to be changes in the land use map over time. This includes
formerly rural areas becoming more urban. There are some areas, such as existing conservation
easements, which will remain as they are for the foreseeable future. Conservation easements are not
included in the Present Rural designated area.
In laying out the map, it is important to remember that no urban development can occur until the
necessary sewer, water, and transportation capacity can be provided to support it. This will shape the
sequence in which property will change to an urban status.
Question: When preparing the future land use map is it now time to simply plan for fully urbanizing the
entire planning area with the exception of areas with unique limitations such as conservation easements?
Alternatives:
1) Only show the minimum urban area to match annexed land plus anticipated growth and keep using
the Present Rural designation to show the remaining area. This is continuing existing practice.
2) Show all areas as urban of some type excluding those areas with a conservation easement or similar
legal restrictions on use.
3) Show most areas as some urban designation and only use Present Rural for those areas with
substantial utility service location restrictions and/or substantial intent to maintain in non-urban
character for the long term.
4) Revise the description of Present Rural to show as not urban yet but that if annexed it defaults to an
urban designation such as Residential.
Staff recommends alternative 3 or 4.
3. Suburban Residential land use designation – The City has identified existing developed suburban
areas on its last two future land use maps. The description for the Suburban Residential designation says
in part: “This category indicates locations generally outside of City limits, but within the planning area,
where a land development pattern has already been set by rural subdivisions. Subdivisions in this area
are generally characterized by lots two acres in size or less. It is probable that portions of this area may
be proposed for annexation within the next twenty years. This may result from increased water quality
standards, failing septic systems, desire for increased development, or other reasons. The area is able to
be served with municipal water and sewer services with appropriate extensions of main lines. Any
further development within this area should be clustered to preserve functional open space. Individual
septic and well services are discouraged. If development is proposed within reasonable access distances
to waste water and water services, annexation to the City should be completed prior to development.”
This designation has essentially been a placeholder recognizing an existing pattern, usually large lot
residential, but giving little guidance for change in the future. Some areas with this designation are near
municipal services and boundaries and will likely be annexed over the service life of the updated growth
policy. As noted in the description above, the areas with this designation can at some point be serviced
with municipal water and sewer. A change in the future land use designation does not require private
land owners to make any change in their property. It would show the intention of the City over the long
term.
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The areas of the Suburban Residential is shown on the preceding map in the yellow shade. An expanded
sample showing a section were the Suburban Residential designation is next to the City and planned
Residential use.
Figure 5: Example of area where Suburban Residential is next to the City limits. Light yellow is the
Suburban Residential area.
Question: When preparing the future land use map should the Suburban Residential designation be used
again?
Alternatives:
1) Continue to use Suburban Residential as it has been.
2) Depict all areas currently shown as Suburban Residential as a different urban designation such as
Residential.
3) Only show the Suburban Residential on areas with an existing developed condition and substantial
difficulties in extending municipal services.
Staff recommends alternative 3.
4. Business Park Mixed Use land use designation –The business park model of isolated buildings
surrounded by lawns may not be a good fit for the general land development and economic development
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policies of the City. As the future land use map is prepared for the update to the growth policy, now is a
good time to consider whether this land use designation should be continued or removed. The Business
Park Mixed Use designation applies to about 1% of the planning area in 13 areas of the community.
Implementing zoning districts are M-1, BP, and PLI. There are 10 areas zoned as BP at this time. All of
the activities described in the Business Park Mixed Use category are allowed in other categories so
removing it will not strand certain uses.
The description of this land use designation begins with: “This classification provides for employment
areas with a variety of land uses typified by office uses and technology-oriented light industrial uses.
Civic uses may also be included. Retail, residential, services, or industrial uses may also be included in
an accessory or local service role. Accessory uses should occupy 20% or less of the planned Business
Park Mixed Use areas.”
Figure 6: Business Park Mixed Use designation is shown in purple.
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If the Business Park Mixed Use land use designation is not used in the update a new designation must be
applied to the parcels that have that designation today. Several different designations such as industrial
or community commercial mixed use may be appropriate replacements. This will need to be determined
on a site by site basis. If the Business Park Mixed Use is continued there is still the opportunity to revise
its meaning to reflect a more diverse set of uses. A follow-up change to the Business Park zoning district
will likely be needed if the description of the land use designation is substantially altered.
Question: When preparing the future land use map should the Business Park Mixed Use designation be
used again?
Alternatives:
1) Continue to use the Business Park Mixed Use land use designation
2) Discontinue use of Business Park Mixed Use and replace with a new designation on the individual
sites on the future land use map.
3) Revise the description of Business Park Mixed Use to have a more urban character.
Staff recommends Alternative 2 or 3.
Reference material:
This link will take you to the Planning Coordinating Committee web map. This map has key information
on Bozeman and County information including planning and zoning maps, roads, and water and sewer
district boundaries.
http://gis.gallatin.mt.gov/webmaps/?map=pcc
This link takes you to the City’s Community Development viewer which shows the planning area and
future land use designations, current land use within the city, and zoning. Click in the boxes in the panel
on the left to display the labeled information.
https://gisweb.bozeman.net/Html5Viewer/?viewer=planning
This link takes you to the City’s Infrastructure Viewer which shows the existing and planned street,
water, and sewer systems. Layers in the panel to the left that have a + sign next to them have additional
information. Click on the + to display the additional layer options for display.
https://gisweb.bozeman.net/Html5Viewer/?viewer=infrastructure
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Future Land Use designations as of January 31, 2019. Includes all finalized amendments to the future
land use map and city limits as of this date.
Future land use area Acres
Total planning area 42,465.28 100%
Industrial 1,310.64 3%
Business Park Mixed Use 324.83 1%
Regional Commercial and Services 729.12 2%
Golf Course 495.92 1%
Residential Emphasis Mixed Use 316.20 1%
Public Institutions 1,770.39 4%
Suburban Residential 4,379.06 10%
Parks, Open Space and Recreational Lands 1,980.63 5%
Community Core 124.19 0%
Other Public Lands 1,284.98 3%
Present Rural 16,521.79 39%
Community Commercial Mixed Use 1,392.02 3%
Residential 11,835.51 28%
Total City Annexed Area 12,932.88
UNRESOLVED ISSUES: None.
ALTERNATIVES: Direction as determined by the Commission.
FISCAL EFFECTS: None at this time.
Attachment: 76-1-601, MCA
Draft planning area boundary map
Future land use map of the Gooch Hill West neighborhood plan
Report compiled on February 12, 2019
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TITLE 76. LAND RESOURCES AND USE
CHAPTER 1. PLANNING BOARDS
Part 6. Growth Policy
76-1-601. Growth policy -- contents.
(1) A growth policy may cover all or part of the jurisdictional area.
(2) The extent to which a growth policy addresses the elements listed in subsection (3) is at the full discretion of
the governing body.
(3) A growth policy must include:
(a) community goals and objectives;
(b) maps and text describing an inventory of the existing characteristics and features of the jurisdictional area,
including:
(i) land uses;
(ii) population;
(iii) housing needs;
(iv) economic conditions;
(v) local services;
(vi) public facilities;
(vii) natural resources;
(viii) sand and gravel resources; and
(ix) other characteristics and features proposed by the planning board and adopted by the governing bodies;
(c) projected trends for the life of the growth policy for each of the following elements:
(i) land use;
(ii) population;
(iii) housing needs;
(iv) economic conditions;
(v) local services;
(vi) natural resources; and
(vii) other elements proposed by the planning board and adopted by the governing bodies;
(d) a description of policies, regulations, and other measures to be implemented in order to achieve the goals
and objectives established pursuant to subsection (3)(a)[community goals and objectives];
(e) a strategy for development, maintenance, and replacement of public infrastructure, including drinking water
systems, wastewater treatment facilities, sewer systems, solid waste facilities, fire protection facilities, roads, and
bridges;
(f) an implementation strategy that includes:
(i) a timetable for implementing the growth policy;
(ii) a list of conditions that will lead to a revision of the growth policy; and
(iii) a timetable for reviewing the growth policy at least once every 5 years and revising the policy if
necessary;
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(g) a statement of how the governing bodies will coordinate and cooperate with other jurisdictions that
explains:
(i) if a governing body is a city or town, how the governing body will coordinate and cooperate with the
county in which the city or town is located on matters related to the growth policy;
(ii) if a governing body is a county, how the governing body will coordinate and cooperate with cities and
towns located within the county's boundaries on matters related to the growth policy;
(h) a statement explaining how the governing bodies will:
(i) define the criteria in 76-3-608(3)(a) [subdivision and platting act primary review criteria] ; and
(ii) evaluate and make decisions regarding proposed subdivisions with respect to the criteria in 76-3-608(3)(a);
(i) a statement explaining how public hearings regarding proposed subdivisions will be conducted; and
(j) an evaluation of the potential for fire and wildland fire in the jurisdictional area, including whether or not
there is a need to:
(i) delineate the wildland-urban interface; and
(ii) adopt regulations requiring:
(A) defensible space around structures;
(B) adequate ingress and egress to and from structures and developments to facilitate fire suppression
activities; and
(C) adequate water supply for fire protection.
(4) A growth policy may:
(a) include one or more neighborhood plans. A neighborhood plan must be consistent with the growth policy.
(b) establish minimum criteria defining the jurisdictional area for a neighborhood plan;
(c) establish an infrastructure plan that, at a minimum, includes:
(i) projections, in maps and text, of the jurisdiction's growth in population and number of residential,
commercial, and industrial units over the next 20 years;
(ii) for a city, a determination regarding if and how much of the city's growth is likely to take place outside of
the city's existing jurisdictional area over the next 20 years and a plan of how the city will coordinate
infrastructure planning with the county or counties where growth is likely to take place;
(iii) for a county, a plan of how the county will coordinate infrastructure planning with each of the cities that
project growth outside of city boundaries and into the county's jurisdictional area over the next 20 years;
(iv) for cities, a land use map showing where projected growth will be guided and at what densities within city
boundaries;
(v) for cities and counties, a land use map that designates infrastructure planning areas adjacent to cities
showing where projected growth will be guided and at what densities;
(vi) using maps and text, a description of existing and future public facilities necessary to efficiently serve
projected development and densities within infrastructure planning areas, including, whenever feasible,
extending interconnected municipal street networks, sidewalks, trail systems, public transit facilities, and other
municipal public facilities throughout the infrastructure planning area. For the purposes of this subsection
(4)(c)(vi), public facilities include but are not limited to drinking water treatment and distribution facilities,
sewer systems, wastewater treatment facilities, solid waste disposal facilities, parks and open space, schools,
public access areas, roads, highways, bridges, and facilities for fire protection, law enforcement, and
emergency services;
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(vii) a description of proposed land use management techniques and incentives that will be adopted to
promote development within cities and in an infrastructure planning area, including land use management
techniques and incentives that address issues of housing affordability;
(viii) a description of how and where projected development inside municipal boundaries for cities and inside
designated joint infrastructure planning areas for cities and counties could adversely impact:
(A) threatened or endangered wildlife and critical wildlife habitat and corridors;
(B) water available to agricultural water users and facilities;
(C) the ability of public facilities, including schools, to safely and efficiently service current residents and
future growth;
(D) a local government's ability to provide adequate local services, including but not limited to
emergency, fire, and police protection;
(E) the safety of people and property due to threats to public health and safety, including but not limited
to wildfire, flooding, erosion, water pollution, hazardous wildlife interactions, and traffic hazards;
(F) natural resources, including but not limited to forest lands, mineral resources, sand and gravel
resources, streams, rivers, lakes, wetlands, and ground water; and
G) agricultural lands and agricultural production; and
(ix) a description of measures, including land use management techniques and incentives, that will be adopted
to avoid, significantly reduce, or mitigate the adverse impacts identified under subsection (4)(c)(viii).
(d) include any elements required by a federal land management agency in order for the governing body to
establish coordination or cooperating agency status as provided in 76-1-607.
(5) The planning board may propose and the governing bodies may adopt additional elements of a growth policy in
order to fulfill the purpose of this chapter.
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MEADOWBROOK ESTATES
ASPEN BASIN
STUCKY RD
PARK COUGAR SUB
INDUSTRIAL CALICO
PARK SUB.
HUFFINE LN HWY 191
BEATTY RD
LYNX LN
GOOCH HILL RD GOOCH HILL RD
ELK LN
BEATTY RD
CALICO DR
HUFFINE LN HWY 191
GOOCH HILL RD
STARNER DR
WILDCAT WAY
MALTESE LN
TAWNY BROWN LN
FALCON LN
BOBCAT DR
ROWLAND RD
HALEY SPRINGS RD
TEXAS WAY
WESSLEY WAY
JOES WAY
WOLVERINE LN
BIG HORN LN
BEATTY RD
LOVE LN
HUFFINE LN HWY 191
LYNX LN LYNX LN
COUGAR PARK
WEST SUB.
INDUSTRIAL COUGAR PARK SUB.,
FIRST FILING
INDUSTRIAL COUGAR PARK SUB.,
SECOND FILING
GOOCH PROPOSED HILL WEST
NEIGHBORHOOD PLAN AREA SUBDIVISION, REA
FILING FIRST
TRAILER KING ARTHUR COURT
18 17
19
20
16
2S 5E
Farmers Canal
Farmers Canal
Hyalite Creek (aka Middle Creek)
Hyalite Creek (aka Middle Creek)
Hyalite Creek (aka Middle Creek)
Farmers Canal
Aajker Creek
McDonald Creek
FALCON PROPOSED HOLLOW
FIRST MAJOR FILING SUB.,
FALCON PROPOSED HOLLOW
MAJOR PHASE SUB.2 ,
RETAIL
MIXED COMMERCIAL INDUSTRIAL/
RETAIL
RESIDENTIAL MEDIUM
HIGH RESIDENTIAL MEDIUM
AS
AS
RESIDENTIAL MEDIUM
RMD
RMD
AS
RS
GALLATIN COUNTY/BOZEMAN AREA ZONING DISTRICT
MIXED INDUSTRIAL/COMMERCIAL
RESIDENTIAL MEDIUM
RESIDENTIAL LOW
RESIDENTIAL MEDIUM
M
IDDLE CREEK PARK
RESIDENTIAL LOW
COMMUNITY CORE
RETAIL
RETAIL
RS
RS RS
FOUR PROPOSED CORNERS
NEIGHBORHOOD AREA PLAN
FOUR PROPOSED CORNERS
NEIGHBORHOOD AREA PLAN
PROPOSED GOOCH HILL WEST NEIGHBORHOOD PLAN - FUTURE LAND USE
GALLATIN MAP PREPARED COUNTY, BY MT
PLANNING GIS DEPARTMENT DEPARTMENT AND
bw_20070918_gooch_01/16/2007; hill_west_09/18/future_2007 land_use.mxd
NOTE: and does This not represent map is a visual a survey. representation No liability only
is delineated assumed hereon. as to the This accuracy map is of a the draft data and is
intended not for any to legal be used purposes. only as a reference and ·
09/DRAFT 18/2007
GOOCH PROPOSED HILL WEST
NEIGHBORHOOD PLANNING AREA
0 0.25 0.5 Miles
LEGEND
CONSERVATION EASEMENTS
!( EXISTING STRUCTURES
GALLATIN ZONING BOUNDARY COUNTY BOZEMAN AREA
PROPOSED NEIGHBORHOOD GOOCH PLANNING HILL WEST AREA
(APPROXIMATELY 957.5 ACRES)
EXISTING PARCELS
MIXED (APPROX. INDUSTRIAL/157.4 AC OR COMMERCIAL 16% OF TOTAL)
RETAIL (APPROX. 23.2 AC OR 2% OF TOTAL)
COMMUNITY (APPROX. 19.3 CORE AC OR 2% OF TOTAL)
GOOCH PROPOSED HILL FUTURE WEST NEIGHBORHOOD LAND USE -
PARKS AND OPEN SPACE
PROPOSED PENDING REVIEW SUBDIVISIONS
HIGH (APPROX. MEDIUM 41.7 AC RESIDENTIAL OR 4% OF TOTAL)
MEDIUM (APPROX. RESIDENTIAL 423.5 AC OR 44% OF TOTAL)
LOW (APPROX. RESIDENTIAL 225.5 AC OR 24% OF TOTAL)
PARK (APPROX. 54.9 AC OR 6% OF TOTAL)
AREA APPROX. OF 12 EXISTING AC OR 1% ROADS OF TOTAL IS
219