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HomeMy WebLinkAboutPB FLUM memo 9-03-2019 TO: BOZEMAN PLANNING BOARD FROM: CHRIS SAUNDERS, COMMUNITY DEVELOPMENT MANAGER RE: COMMUNITY PLAN UPDATE – FUTURE LAND USE MAP DISCUSSION DATE: SEPTEMBER 3, 2019 The land use descriptions have been revised per discussion with the Planning Board on August 20th. Corresponding changes to the map are provided in the accompanying maps. Approximately 2,048 edits are depicted on the map. Some are individual parcels where such information is available and some are larger areas on the outer area of the Planning Area where we do not have individual parcel data. There are three maps presented: 1) Existing future land use map 2) Draft changes for the future land use map only 3) Combined map with draft changes overlaid on the existing future land use map. Land Use Principles There are seven core ideas that correlate with the themes of the plan and shape the future land use map. If the Board believes a change in these ideas is appropriate now is the time to identify those changes. Activity Centers. Strengthen a pattern of community development oriented on centers of employment and activity. Such centers can be surrounded by and integrated into residential areas. A corollary principle is for compact development. Commercial activities in clustered areas give each other mutual reinforcement 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 vehicles, with a resulting 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 attract and support commercial activities. Careful location of nearby higher density housing supports centers, while providing services to residents. Activity centers are also encouraged to provide non-commercial services such as parks, recreation, education, and other social assembly options. Sense of Place. This idea builds on those of Activity Centers and Neighborhoods and Districts. 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. There is increasing evidence of sense of place as an important influence on economic development. 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. How a neighborhood is initially designed can influence its ability to redevelop and change gracefully. 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. A compact development pattern reduces the amount of rural area consumed by land development. 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 core 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 accessible 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, residential and commercial 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 and function of and area is superior to volume alone. • 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 compact 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 The land use categories have been grouped and pruned. Those likely to be removed are shifted to the end and noted as such. The document will have a lead-in to these detailed descriptions that addresses the overall scale of the map and that watercourses, wetlands, and other natural features are not mapped but exist and will be protected at time of development. Since this is a non-regulatory document the descriptive statistics tables are to help people understand the scope of the land use category. They are not compulsory or limiting but do give guidance in developing implementing zoning standards. Most categories have multiple implementing zoning districts. Residential Urban Residential. This category designates places where the primary activity is urban density homes. The residential designation provides the primary locations for additional housing within the planning area. Housing occurs in many shapes, sizes, and intensities. Uses which complement residences are included such as parks, home based occupations, fire stations, churches, and schools. These complementary uses provide activity centers for community gathering and services. Over time and when appropriate these complimentary uses may be redesignated to an appropriate community designation. All housing configurations and complementary uses are generally considered to be compatible when the City’s development standards are followed. The residential designation indicates that that development is expected to occur within municipal boundaries. This may require annexation prior to development. Application of a zoning district to specific parcels sets the required and allowed density. Higher density residential areas are encouraged in proximity to community commercial mixed use areas to facilitate the provision of services and employment opportunities without requiring the use of a car and with adequate infrastructure to support intensive use. A variety of housing types is encouraged to achieve desired density. Large areas of single type housing are discouraged. In limited instances, an area may develop at a lower gross density than normally expected due to the strong presence of constraints and natural features such as floodplains or steep slopes. Descriptive Statistics Minimum Maximum Current Range Building Height N/A 24-62 feet Lot Area 2,500 sq. ft. 2.5 acres Lot Coverage None 25%-100% Floor Area Ratio None 0.45:1 to Unlimited Minimum Maximum Current Range Residential Density per net acre 5 32 to Unlimited Non-Residential Density N/A 0.45:1 to 1.5:1 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. Descriptive Statistics Minimum Maximum Range Building Height 0/15 feet 32 feet to 5 stories Lot Area 2,500 sq. ft. 2.5 acres Lot Coverage None 40% to 100% Floor Area Ratio None 1:1 to 2.5:1 Residential Density per net acre 5 Unlimited Non-residential Density N/A 30%-49% of gross building area Employment Regional Commercial and Services. Bozeman is a professional services, retail, education, health services, public administration, and tourism hub. It provides opportunities for these activities for a multi-county region; and in some circumstances at a global scale. The scale of these services is larger than is required for Bozeman alone. These are often developed with physically large and economically prominent facilities within the community and region. The scale requires substantial infrastructure in support of development. Due to the scale it may overwhelm low density residential uses. Therefore, location is important. Because of the draw from outside Bozeman, it is necessary that these types of facilities be located near to significant transportation routes. Opportunity is provided for a mix of uses that encourages a robust and broad activity level. 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 utilities, transportation, and open space network that encourages pedestrian activity, and provides ready access within and to adjacent development. Descriptive Statistics Minimum Maximum Current Range Height 13 feet 34-86 feet Lot Area No minimum 40 acres, with pedestrian connections Lot Coverage No minimum 100% Floor Area Ratio None to 0.5:1 Unlimited Residential Density N/A Unlimited Service Area None Multi-county region Community Commercial Mixed Use. This land use category is the area for the basic employment and services necessary for an economically healthy and vibrant community. Establishments located within this category draws from the community as a whole, as well as nearby development, 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. Community Commercial Mixed Use areas integrate with significant transportation corridors, including transit and non-automotive routes, to support 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. Residences on upper floors in appropriate circumstances are allowed. Urban streetscapes, plazas, outdoor seating, public art, and hardscaped open space and park amenities are anticipated, appropriately designed for an urban character. High density residential areas are expected in close proximity. Including residential units on sites within this category, typically on upper floors, can 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 scale) Community Commercial Mixed Use areas are significant in size (generally 75 acres or larger) 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-two mile separation. Smaller (neighborhood scale) 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 to one mile radius. The density of adjacent residential development affects the viability of the smaller areas with an average density between 14 and 22 dwellings per net acre needed to support a half-mile radius node. These commercial centers support and help give identity to portions of the community by providing a visible and distinct focal point as well as needed employment and services. They should typically be located on one or two quadrants of intersections of arterial and/or collector streets. Due to past development patterns there are also areas along major streets where this category is organized as a corridor rather than a center. 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 areas. Building and site designs made to support easy reuse of the building and site over time is important. 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 may be required for compatibility with adjacent development. Descriptive Statistics Minimum Maximum Current Ranges Height 13 feet 34-57 feet Lot Area No minimum 40 acres, with pedestrian connections Lot Coverage No minimum 100% Floor Area Ratio None to 0.5:1 Unlimited Residential Density N/A Unlimited Community Scale Service Area Serve 4,500 acres, 11,500 homes, 75 acres in size Serve all of Bozeman, 30,000 homes, 120 acres Neighborhood Scale Service Area Serve 500 acres, 3,500 homes, 10 acres in size Serve 2,000 acres, 5,500 homes, 12 acres 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 likely harmed by industrial activities are discouraged from locating in these areas. 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. Descriptive Statistics Minimum Maximum Current Range Height N/A 38 to 45 feet Lot Area None to 43,560 sq. ft. 40 acres, with pedestrian connections Lot Coverage No minimum 100% Floor Area Ratio None Unlimited Accessory Residential Density N/A Less than 50 percent of the gross floor area of the building Community Public Lands and Institutions. A variety of activities are focused in this land use classification. Schools are a dominant use including Montana State University. Other typical uses are libraries, fire stations, and private and publicly operated utilities. A significant portion of Bozeman’s employment occurs within this category. Many different zoning districts overlay this category. As opportunity presents, such zoning should be changed to Public Lands and Institutions. Due to the diversity of zoning applicable to this category no descriptive statistics table is provided. 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 private property such as land with a conservation easement, land owned by home owners associations, or golf courses which may not be open to the public without the owners specific permission. This category is distinguished from Public Lands and Institutions due to the very low employment and development potential in these areas. Parks occur at a range of scales from local tot lots to regional parks. Most parks are located, sized, and constructed as part of the development process and therefore future parks are not shown in this category as locations are not yet determined. As the growth policy is updated, developed parks will be shown in this category. The service area for each type of park is set by the City’s overall park master plan. As there are few structures intended in this area no descriptive statistics table is provided. For information on recommended park sizing and characteristics see the City’s park facility plan. Other Present Rural. This category designates areas where development is considered to be generally inappropriate over the 20 year planning horizon of this growth policy, 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 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. If further subdivision is proposed, to develop at urban densities and standards with provisions for connection to City services when they become available. 3. Develop at a density of a single dwelling per existing parcel, with consolidation of smaller parcels into single ownership prior to development; or 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. Possible discards 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. 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. 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. Other Public Lands. This category designates lands owned by public agencies but not included under Parks, Open Space and Recreational Lands or Public Institutions. 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 or there are factors which restrain the property from substantial further development. 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.