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HomeMy WebLinkAboutPB FLUM memo 8-6-2019 TO: BOZEMAN PLANNING BOARD FROM: CHRIS SAUNDERS, COMMUNITY DEVELOPMENT MANAGER RE: COMMUNITY PLAN UPDATE – FUTURE LAND USE MAP DISCUSSION DATE: AUGUST 6, 2019 The next substantial element of the plan preparation is the future land use map (FLUM). We are asking the Board to weigh in on several key questions at this meeting. Please review the attached materials. We will discuss the mapping principles, land use descriptions, and associated text. This is some of the most frequently used information in the growth policy. Background The Planning Board had a discussion on January 9 and 31, 2019 regarding several key elements of the future land use map (FLUM). The City Commission had a work session on February 25, 2019 to consider the same materials. The Commission video is available at https://media.avcaptureall.com/session.html?sessionid=bea087a3-e96f-49fe-9288-970010d49376&prefilter=654,3835 Questions and summary direction given were: 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? Answer: Yes. 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? Answer: 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 3. When preparing the future land use map should the Suburban Residential designation be used again? Answer: Only show the Suburban Residential on areas with an existing developed condition and substantial difficulties in extending municipal services. 4. When preparing the future land use map should the Business Park Mixed Use designation be used again? Answer: In general, stop use of this designation and revise language for allow greater uses. The draft of the map prepared by Staff will include the direction given. Coordination with the City’s capital improvement plan and utility plans will be in place. Planning Staff met with Public Works and Economic Development staff on July 15th to discuss constraints and needs for the FLUM. The Numbers To help consideration and discussion about the future land use map the following information is provided. All figures are rounded to whole numbers due to the scale of the information. Although the area within the planning area seems much larger than the current City limits, after taking into account current and anticipated land commitments approximately 75% of the planning area is tied up. Total Planning Area: 43,341 acres (67.72 sq. mi.) City Limits Area as of 12/31/2018: 13,100 acres (20.47 sq. mi.) Developed area outside of the City limits (includes unannexed areas within the City): 10,633 acres (16.61 sq. mi.) Area in conservation easements or state lands: 2,252 (3.52 sq. mi.) Area in Story Hills south of Bridger Drive and north of the Frontage Road and currently shown as Present Rural: 4,506 acres (7.04 sq. mi.) Additional area estimated as needed by EPS with adjustments for existing housing shortfall per the Housing Needs Assessment and adjusted to match to the City’s definition for net acres and including commercial and industrial area: Baseline residential density new total acres 5,716 (8.93 sq. mi.) Compact residential density new total acres 3,820 (5.97 sq. mi) Estimated growth rate by EPS: 1.5%, annual average new homes 455 Actual new home permits issued: 2017 559 2018 1,282 Commercial node residential density needed rules of thumb 3,500 - 5,500 homes needed to support a local service node Number of homes per acre needed to meet minimum financial density required to support local node EPS report, p 57, B-1 node with 20,000-30,000 sq. ft. building area (ex. node at Kagy and S. 3rd – both sides of Kagy) Acres w/in radius Dwellings per gross acre high range Dwellings per gross acre low range Dwellings per net acre high range Dwellings per net acre low range 1 mile service radius 2,011 2.7 1.7 5.5 3.5 .5 mile service radius 503 10.9 7.0 21.9 13.9 Future Land Use Map principles/practices for drafting 1) Future Land Use Map is not time bound. The map does not depict only those areas needed today and within 20 years of the plan’s adoption. Given the variability in growth rates, landowner willingness to develop, and other factors staff has concluded that trying to predict exact locations for growth is as likely to be wrong as right. 2) FLUM is coordinated with the City’s utility and infrastructure planning documents. 3) FLUM recognizes that nearly as much of the planning area outside of the City has moved into non-agricultural uses as is within the City and that it is highly unlikely that such uses will revert to agriculture. 4) We expect to need much more residential than commercial/industrial land. The residential designation tends to be the location where public facilities such as parks and schools are located. The designation is changed to Public Lands and Institutions when locations for such facilities have been established. 5) Due to scale the FLUM does not attempt to show watercourses, wetlands, or slopes. When printed on an 8.5x11 inch page the scale is 1 inch to 7,000 feet. At this scale a 100 foot watercourse corridor would only be 0.014 inches wide. However, the City’s regulations and the policies of the plan require minimum impact on these features. Correspondingly, although the FLUM appears to show an uninterrupted urban pattern there will be many stream corridors and other separations. 6) Ability to complete the depicted land use pattern will be strongly affected by: a. funding availability both private and public to construct necessary infrastructure. b. regulations imposed by state and federal agencies for natural resource protections and utility operations. c. willingness of landowners to change the use of land. d. availability of water rights to support additional development. 7) The practical costs and realities of infrastructure design will enable development in some locations sooner than others. As the map is not time bound it is looking at an end condition rather than an intermediate status. A secondary map looking at infrastructure timing could be developed if the Board believes there is value in doing so. There are many constraints on predicting exact timelines for infrastructure expansion. However, there are some broad stroke descriptions that can be assembled. 8) The City desires to increase the percentage of the work force living within its boundaries in order to lessen commuter vehicle travel and support multi-modal travel. 9) Depiction with an urban designation is not a statement that a property “should” develop but that if it changes from what it is presently how it can fit into a larger community context is shown. Decision to change land use remains largely with the landowner. The following text will be provided to LoganSimpson to help them assemble draft plan after the Planning Board has discussed it. The text will remain subject to change until the plan is finalized and adopted by the City Commission. Land Use Principles There are seven core ideas that correlate with the themes of the plan and shape the future land use map. These have largely carried forward from the 2001 and 2009 plans but have been updated to correspond with the themes identified so far in the development of this plan. If the Board believes a change in these ideas is appropriate now is the time to identify those changes. Questions: Does the Board support use of these principles? If not, what is proposed in their place? Centers. Strengthen a pattern of community development oriented on centers of employment and activity. A corollary principle is for compact development. Commercial activities in mutually reinforcing centralized areas provide: · Increased business synergy. · Greater convenience for people with shorter travel distances to a wide range of services. · The opportunity to accomplish several tasks with a single trip. · Facilitates the use of transportation alternatives to single occupant motor vehicles, with a corresponding reduction in traffic and road congestion and air quality impacts. · Enables greater access to employment, services, and recreation with a reduced dependence on the automobile · Greater efficiencies in delivery of public services, · Corresponding cost savings in both personal and commercial applications. The center-based concept requires less land for actual business activities due to efficiencies such as opportunities for shared parking. It also changes the shape of the commercial areas. This plan supports the center-based development pattern by locating centers at the intersection of arterial and collector streets. Such locations allow not only immediately adjacent residents but also passing travelers to support commercial activities. Careful location of nearby higher density housing supports Centers, while providing services to residents. Sense of Place. This idea builds on those of Centers and Neighborhoods. Part of the appeal of Bozeman is its distinct character. A portion of this character comes from the natural setting of the town. Bozeman’s character includes the sense of place created by constructed landmarks such as Downtown and MSU. Preserving Bozeman as a unique place rather than Anywhere, USA is important. The public input supported this idea. The existing Downtown business core was the overwhelming choice for the location, which best represented the “heart” of Bozeman. There was also support to developing additional “places” in the community that have their own unique character. Recognition and stewardship of the unique features and built environment that give a sense of place is important for Bozeman’s individual identity to continue in the future. Incorporating community and architectural design features that provide organization and landmarks, such as parks and commercial centers, in new development anchors and extends this sense of place as Bozeman grows. New development will reflect its own place in time and community needs. Development that fills in existing gaps in the City strengthens and reinforces the compact and interconnected pattern of historic Bozeman. Natural Amenities. Bozeman is located in a beautiful natural environment. The natural amenities surrounding Bozeman are a significant component of the high quality of life and support the economy. As Bozeman changes and grows, opportunities to carefully integrate development with natural features such as streams arise. Ensuring that development is responsive to the natural amenities will help to keep Bozeman beautiful and vibrant. Neighborhoods and Districts. There is strong public support for development being part of a larger whole, rather than anonymous subdivisions. This idea includes strengthening existing neighborhoods through adequate infrastructure maintenance and other actions. Neighborhoods change over time and their character can evolve. As the population of Bozeman grows, it is harder to keep the same “small town” feel because residents cannot be on familiar terms with everyone. The neighborhood unit helps provide the sense of familiarity and intimacy which can be lacking in larger communities. The neighborhood commercial/activity center and local parks provide opportunities to casually interact with other nearby residents. Not all neighborhoods are of the same size or character. Urban Density. Although a wide range of commercial and housing styles, types, and densities are provided in Bozeman, not every option is provided. Bozeman is a city, and the housing densities are not those of the rural areas of Gallatin County. A concentration of persons and activities is necessary to the efficient and cost-effective provision of urban services, multi-modal transportation oriented development, and a compact development pattern. Density of development must be balanced with other community priorities such as infrastructure capacity, parks and open spaces, and housing choices of citizens. Quality and care in site and architectural design greatly affects whether urban density and scale of development is accepted. Sustainability. Providing for the needs of today’s residents and visitors should be done in a manner that does not jeopardize current or future residents. Careful community design and thoughtful development serves the community well now and in the future. More people will require more resources. The manner in which those resources are obtained strongly influences the community and adjacent communities. Sustainability is a holistic issue and is interwoven through the City’s operations and regulations. Integration of Action. Land use policy is integrated with and supported by all other City policies and programs, including planning and construction for utilities and services such as wastewater and transportation. This ensures that community objectives are attained efficiently. Capital improvements, maintenance programs, and plan implementation tools are regularly evaluated and updated. Ensuring a consistent set of guiding principles provides a higher level of service to citizens, minimizes contradictory or conflicting policies which waste financial and other resources, and enable a more equitable evaluation of public stewardships. Drawing on the seven ideas discussed above, the following principles were used to prepare the land use designations, policies, and map: . • Development should be reasonably compact and serve a variety of housing needs. • Transportation systems should support the desired land use pattern and be interconnected multi-modal networks (e.g. bicycles, pedestrian, transit, automobiles or other vehicles). • A diverse mix of activities should occur within proximity to each other, but not necessarily have everything happening everywhere. • Urban design should integrate multi-modal transportation, open spaces, land use activity, and quality of life. • Open spaces, including parks, trails, and other gathering places, should be in convenient locations to those they serve and better quality is superior to volume. • Development should be integrated into the larger community rather than as a series of unconnected standalone projects. • Variety of housing, service, and employment opportunities is important. • Land development should be compatible with and further other community goals. • Land use designations must respond to a broad range of factors, including natural constraints, economic constraints, and other community priorities. • The needs of new and existing development coexist and must remain in balance. • Infill development and redevelopment which encourages the efficient utilization of land and existing infrastructure systems is encouraged but outward growth is part of the continuing growth of the city. • Future development patterns should be consistent with community values and priorities. Land Use Descriptions for use on the future land use map These have largely carried forward from the 2001 and 2009 plans but have been updated to correspond with the themes identified so far in the development of this plan. If the Board believes a change in these ideas is appropriate now is the time to identify those changes. Questions: Does the Board support use of these categories and descriptions? If not, what is proposed in their place? Residential. This category designates places where the primary activity is urban density homes. Housing may occur in many configurations. Uses which complement residences are included such as parks, home based occupations, fire stations, churches, and schools. Establish higher density residential areas in close proximity to commercial centers to facilitate the provision of services and employment opportunities to people without requiring the use of an automobile. The residential designation indicates that that development is expected to occur within municipal boundaries. This may require annexation prior to development. The density of homes expected within this classification varies between 6 and 150 dwellings per net acre. [Editors commentary: Although 150 du per acre sounds very high we have several existing locations in the community where similar densities are in place today. The R-5 district and REMU districts currently authorize the highest densities of homes in residential districts.] Application of zoning district to specific parcels sets the allowed density. Higher density is encouraged in proximity to services and with adequate infrastructure to support the intensive use. A variety of housing types is encouraged to achieve the desired density. Large areas of single type housing are discouraged. In limited instances, an area may develop at a lower density than normally expected due to the strong presence of constraints and natural features such as floodplains or steep slopes. Arrange residential housing considering compatibility with adjacent development, natural constraints such as watercourses or steep slopes, and in a fashion that advances the overall goals of the community. The residential designation provides the primary locations for additional housing within the planning area. Residential Emphasis Mixed Use. The Residential Mixed-Use category promotes neighborhoods that are substantially dominated by housing integrated with supporting services. Diverse residential housing types should be the majority of any area within this category. Housing choice for a variety of households is desired. This can include attached and small detached single-household dwellings, apartments, and live-work units. Residences should be included on the upper floors of buildings with ground floor commercial uses. Variation in building massing, height, and other design characteristics should contribute to a complete and interesting streetscape and may be larger than in the Residential category. Secondary supporting uses, such as retail, offices, and civic uses, are permitted at the ground floor. All uses should complement existing and planned residential uses. Non-residential uses are expected to be pedestrian oriented and emphasize the human scale with modulation as needed in larger structures. Stand alone, large, non-residential uses are discouraged. Non-residential spaces should provide an interesting pedestrian experience with quality urban design for buildings, sites, and open spaces. This category is implemented at different scales. The details of implementing standards will vary with the scale. The category is appropriate near commercial centers and larger areas should have access on collector and arterial streets. Multi-household higher density urban development is expected. Any development within this category should have a well-integrated transportation and open space network that encourages pedestrian activity and provides ready access within and to adjacent development. Suburban Residential. This category indicates locations outside of City limits, but within the planning area, where a land development pattern of rural subdivisions exists and extension of municipal services requires unusually high effort and cost. The area can be served with municipal water and sewer services with appropriate extensions of main lines. Lots two acres in size or less characterize subdivisions in this area. Any further development within this area should be clustered to preserve functional open space or ability to further develop at urban densities in the future. Individual septic and well services are discouraged. Regional Commercial and Services. Bozeman is a professional services, retail, education, health services, public administration, and tourism hub and provides opportunities for these activities for a multi-county region. The scale of these services is larger than would be required for Bozeman alone. These are large and prominent facilities within the community and region. Because of the draw from outside Bozeman, it is necessary that these types of facilities be located in proximity to significant transportation routes. Opportunity for a mix of uses that encourages a robust and broad activity level is provided. Residential space should not be a primary use; and should only be included as a use above the first floor to maintain land availability for necessary services. Development within this category needs a well-integrated transportation and open space network that encourages pedestrian activity, and provides ready access within and to adjacent development. Community Core. The traditional core of Bozeman is the historic downtown. This area has an extensive mutually supportive variety of uses, a strong pedestrian and multi-modal transportation network, and a rich architectural character. Essential government services, places of public assembly, and open spaces provide the civic and social core of town. Residential development on upper floors is well established. New residential uses should be high density. The area along Main Street is a place for high pedestrian activity uses, with strong pedestrian connectivity to other uses on nearby streets. Users are drawn from the entire planning area and beyond. The intensity of development is high with a Floor Area Ratio well over 1. Future development should continue to be intense while providing areas of transition to adjacent areas and preserving the historic character of Main Street. Community Commercial Mixed Use. This land use category is the area for the basic employment and services necessary for a vibrant community. Establishments located within these categories draw from the community as a whole for their employee and customer base. A broad range of functions typify this designation including retail, education, professional and personal services, offices, typically upper floor residences, and general service activities. In a land use pattern focused on centers, Community Commercial Mixed Use areas are integrate with significant transportation corridors, including transit and non-automotive routes, to facilitate efficient travel opportunities. The density of development is expected to be higher than currently seen in most commercial areas in Bozeman and should include multi-story buildings. A Floor Area Ratio in excess of .5 is desired. Residences on upper floors in appropriate circumstances are encouraged. Urban streetscapes, plazas, outdoor seating, public art, and hardscaped open space and park amenities are anticipated, appropriately designed for an urban character. Placed in proximity to significant streets and intersections, an emphasis on multiple methods of travel must be provided. High density residential areas are expected in close proximity. Including residential units on sites within this category, typically on upper floors, will facilitate the provision of services and opportunities to persons without requiring the use of an automobile. The Community Commercial Mixed Use category is distributed at two different scales to serve different purposes. Large Community Commercial Mixed Use areas are significant in size and are activity centers for an area of several square miles surrounding them. These are intended to service the larger community as well as adjacent neighborhoods and are typically distributed on a one mile radius. Smaller Community Commercial areas are usually in the 10 acre size range and are intended to provide primarily local service to an area of approximately one-half mile radius. These commercial centers support and help give identity to portions of the community providing a visible and distinct focal point. They should typically be located on one or two quadrants of intersections of arterials and/or collectors. Although a broad range of uses may be appropriate in both types of locations the size and scale is to be smaller within the local service placements. Mixed use areas should be developed in an integrated, pedestrian friendly manner and should not be overly dominated by any single land use. Higher intensity employment and residential uses are encouraged in the core of the area or adjacent to significant streets and intersections. Building height transitions by be required for compatibility with adjacent development. Public Lands and Institutions. A variety of activities are undertaken in this land use classification. Schools are a dominant use including Montana State University. Other typical uses are libraries, fire stations, and publicly operated utilities. A significant portion of Bozeman’s employment occurs within this category. Parks, Recreational Lands, and Open Space. All publicly owned recreational lands, including parks, are included within this category, as well as certain private lands. These areas are generally open in character and may or may not be developed for active recreational purposes. This category includes conservation easements which may not be open for public use. Golf Courses. This category designates properties operated by public or private parties in order to support the playing of golf. Golf courses may also include restaurants, retail sales, and other accessory activities. Business Park Mixed Use. 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. These areas are often a buffer between other uses, and the scale and intensity should be carefully considered to ensure compatibility with adjacent developments. The developments should provide integrated open spaces, plazas, and pedestrian pathways to facilitate circulation and a pleasant environment. Uses may be mixed both vertically and horizontally with vertically mixed uses being encouraged. Higher intensity uses are encouraged in the core of the area or adjacent to significant streets and intersections. Industrial. This classification provides areas for the uses which support an urban environment such as manufacturing, warehousing, and transportation hubs. Development within these areas is intensive and is connected to significant transportation corridors. In order to protect the economic base and necessary services represented by industrial uses, uses which would be detrimentally impacted by industrial activities are discouraged. Although use in these areas is intensive, these areas are part of the larger community and standards for architecture and site design issues apply. In some circumstances, uses other than those typically considered industrial have been historically present in areas which were given an industrial designation in this growth policy. Careful consideration must be given to public policies to allow these mixed uses to coexist in harmony. Present Rural. 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 unusually high difficulty in providing urban services. As the City’s growth policy is updated from time to time, some areas currently classified as Present Rural may be reclassified to urban designations. Reclassification must occur prior to development. The land shown with a Present Rural designation is comprised of parcels in a variety of different sizes, but typically in larger acreages. Suburban or rural density subdivisions adjacent to the City may impede an orderly and cost effective expansion of the City. In order to prevent such conflicts and problems in the future, use of land in the Present Rural land use designation should follow one of three paths, which are listed in order of the City’s preference: 1. Remain as currently utilized, until annexed and municipal services are available to support a Residential or other urban land use category development as described in this plan. The change in designation will require an amendment to the growth policy 2. Develop at a density of a single dwelling per existing parcel, with consolidation of smaller parcels into single ownership prior to development; or 3. If further subdivision is proposed, to develop at urban densities and standards with provisions for connection to City services when they become available. Annexation of Present Rural areas is less likely over the term of the growth policy and final authority to deny or approve development in county areas shown with this designation remains with the County Commission. The City has adopted facility plans which address the provision of services within all the planning area. These will enable coordination with Gallatin County. In the event that an intergovernmental agreement is developed that addresses these areas, development shall meet such terms as the agreement states.