HomeMy WebLinkAbout20-021 Blackwood Groves GPA staff report - 5-19-2020Page 1 of 23
20-021, Staff Report for the Blackwood Groves Growth Policy Amendment (GPA).
Public Hearing Dates: Planning Board Meeting: May 19, 2020 at 6:00pm. Meeting to be held electronically. Details available on the Planning Board agenda. City Commission Meeting: June 8, 2020 at 6:00pm. Meeting may be held electronically
or in the City Commission room, City Hall, 121 North Rouse. Details available on the City Commission agenda.
Project Description: A growth policy amendment to revise the future land use map designation on Figure 3-1 of the Bozeman Community Plan from Residential to Residential
Emphasis Mixed Use on 119.45 undeveloped acres.
Project Location: The subject property is located south of Alder Creek Drive, east of South 19th Ave., and west of Hidden Springs Lane and is legally described as the S ½, SW ¼ of Section 24, and the N ½, N ½, NW ¼ of Section 25, Township 2 South, Range 5 East, P.M.M., Gallatin County, Montana, except that part conveyed to the State of Montana for highway right-of-way purposes for South 19th Avenue, State Project S 243(1), by bargain and sale deed, recorded in Book 144 of Deeds, Page 148.
Recommendation: Meets standards for approval
Planning Board Recommended Motion: Having reviewed and considered the application materials, public comment, and all information presented, I hereby move to adopt the findings presented in the staff report and recommend approval to the City Commission of the growth policy amendment application 20-021 with contingencies and subject to all applicable code provisions.
City Commission Recommended Motion: Having reviewed and considered the application materials, public comment, and all the information presented, I hereby move to adopt the findings presented in the staff report and to approve the growth policy amendment with contingencies and subject to all applicable code provisions.
Report Date: May 14, 2020
Staff Contact: Chris Saunders, AICP, Community Development Manager
Agenda Item Type: Action- Legislative
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20-021, Staff Report for the Blackwood Grove Growth Policy Amendment (GPA).
EXECUTIVE SUMMARY
Unresolved Issues None
Project Summary Blackwood Land Fund LLC (landowner), 140 Village Crossing Way, Unit 3B, Bozeman, MT, 59715, and Bridger Builders (applicant), 115 West Kagy Blvd., Suite L, Bozeman, MT, 59715, request to amend the Bozeman Community Plan (Growth Policy) land use designation on Figure 3-1 from Residential to Residential Emphasis Mixed Use on 119.4524 primarily undeveloped acres. The site is located south of Alder Creek Drive, east of South 19th Ave., and west of Hidden Springs Lane. The intention of the future land use map change is to facilitate the subsequent annexation of the property to include a change to the city zoning map to designate the property Residential Emphasis Mixed Use (REMU) zoning from its current county zoning designation of Agriculture-Suburban (AS). The Annexation and initial Zone Map Amendment (ZMA) application has been submitted and is being reviewed on a slightly off-set schedule with the Growth Policy Amendment (GPA) application. Decision by the City Commission on the annexation and zone map amendment is scheduled to follow action on the GPA by about 1 week. Approval of the applications would provide for future development applications to include a mixture of land uses in accordance with the Community Plan’s Residential Emphasis Mixed Use designation and the subsequent REMU zoning designation that is being pursued. Discussion and criteria for deciding on this growth policy application are limited to those in this report. Other elements of the future development will be addressed separately in the future. The application materials note that the City of Bozeman is in the late stages of a comprehensive
update to the Bozeman Community Plan. On the draft future land use map, the subject property
is proposed to be changed from its current Residential designation to the proposed Residential
Emphasis Mixed Use designation that this application proposes. The application notes the map
change proposed now and in the plan update are in line with various goals of the adopted and
draft community plans to encourage more mixed use developments and neighborhood centers. The criteria for review of this growth policy amendment do not look to the future document which is still in development. The draft plan is subject to change as it goes through public review. Decision making on this application must consider the plan currently in effect only.
Alternatives 1. Recommend approval the application with the recommended contingencies;
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20-021, Staff Report for the Blackwood Grove Growth Policy Amendment (GPA). 2. Recommend approval the application with modifications to the recommended contingencies; 3. Recommend denial of the application based on findings of non-compliance with the applicable criteria contained within the staff report; or 4. Open and continue the public hearing on the application, with specific direction to staff or the applicant to supply additional information or to address specific items.
TABLE OF CONTENTS
EXECUTIVE SUMMARY ...................................................................................................... 2 Unresolved Issues ............................................................................................................. 2 Project Summary ............................................................................................................... 2
SECTION 1 - MAP SERIES .................................................................................................... 4
SECTION 2 - RECOMMENDED CONTINGENCIES OF APPROVAL ............................... 5
SECTION 3 - RECOMMENDATIONS AND FUTURE ACTIONS ...................................... 6
SECTION 4 - STAFF ANALYSIS AND FINDINGS ............................................................. 6
APPENDIX A - PROJECT SITE ZONING AND GROWTH POLICY ............................... 18
APPENDIX B - DETAILED PROJECT DESCRIPTION AND BACKGROUND .............. 21
APPENDIX C – NOTICING AND PUBLIC COMMENT ................................................... 22
APPENDIX D - OWNER INFORMATION AND REVIEWING STAFF............................ 22
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20-021, Staff Report for the Blackwood Grove Growth Policy Amendment (GPA).
SECTION 1 - MAP SERIES
Map 1: View of existing area Future Land Use Map designations, Bozeman Community Plan
Map 2: Application map of the proposed amendment to the Future Land Use Map, Bozeman Community Plan, changing the subject property from Residential to Residential Emphasis Mixed Use
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20-021, Staff Report for the Blackwood Grove Growth Policy Amendment (GPA).
Map 3: Map of the existing and proposed major street network serving the project area.
SECTION 2 - RECOMMENDED CONTINGENCIES OF APPROVAL The following contingencies to any approval are recommended. Please note that these contingencies are necessary for the City to complete the processing of the proposed amendment.
Recommended Contingencies of Approval: 1) The applicant shall submit, within forty-five (45) days of approval by the City Commission, a map on: 1) a mylar for City records (either 18" by 24" or 24" by 36" size); 2) a reduced 8 ½" x 11" or 8 ½" by 14" exhibit suitable for filing at the County Clerk & Recorder; 3) an editable digital copy for the City Engineer's Office; and 4) a PDF titled “Blackwood Groves Growth Policy Amendment” to the Department of
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20-021, Staff Report for the Blackwood Grove Growth Policy Amendment (GPA). Community Development containing an accurate description of the property for which the growth policy designation is being amended, including the area outside the subject property (within the public rights-of-way). The exhibit must be acceptable to the Department of Community Development. 2) The resolution for the growth policy amendment shall not be drafted until the applicant provides an exhibit of the entire area to be re-designated, which will be utilized in the preparation of the resolution to officially amend the Future Land Use Map of the Bozeman Community Plan.
SECTION 3 - RECOMMENDATIONS AND FUTURE ACTIONS Having considered the criteria established for a growth policy map amendment, the Staff recommends approval with contingencies for the application as submitted. The Development Review Committee (DRC) considered the amendment on February 5, 2020 and recommended the contingencies of approval immediately above. The Planning Board will hold a public hearing on May 19, 2020 to make a recommendation to the City Commission for the growth policy map amendment. The City Commission will hold a public hearing on the growth policy map amendment on June 8, 2020. Both hearings begin at 6:00 p.m. Meetings will be held in the locations identified on the meeting agendas.
SECTION 4 - STAFF ANALYSIS AND FINDINGS Analysis and resulting recommendations are based on the entirety of the application materials, municipal codes, standards, plans, public comment, and all other materials available during the review period. Collectively this information is the record of the review. The analysis in this report is a summary of the completed review. In considering applications for approval under this title, the advisory boards and City Commission must consider the following criteria. As an amendment is a legislative action, the Commission has broad latitude to determine a policy direction. The burden of proof that the application should be approved lies with the applicant. To reach a favorable decision on the proposed application the City Commission must find that the application meets all of criteria 1-4 of Section 17.4, Bozeman Community Plan Amendment procedures. In making these findings, they may identify that there are some negative elements within the specific criteria with the final balance being a positive outcome for approval. Note: The GPA Application is being reviewed with a slightly off-set schedule for the associated application for Annexation and a Zone Map Amendment (ZMA). The Annexation and ZMA are required to include the adjacent right-of-way for S. 19th Ave. along the south
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20-021, Staff Report for the Blackwood Grove Growth Policy Amendment (GPA). ±1/3rd of the western boundary. (The adjacent right-of-way for S. 19th Ave. along the north ±2/3rd of the western boundary has already been annexed and zoned R-3.) The Staff notes this application does not include that southern segment of the right-of-way as part of the changes, although the Annexation and ZMA are being processed to include that portion of the right-of-way as per Montana Code Annotated 7-2-4211(2). This does not alter any criteria or findings relating to the GPA.
Section 17.4, Bozeman Community Plan Amendment Criteria.
1. The proposed amendment must cure a deficiency in the growth policy, or
improve the growth policy, to better respond to the needs of the general
community; Yes. This criterion contains two alternate parts. A favorable finding for either part supports a positive finding. Staff first reviewed the proposal for its ability to cure a deficiency. It does not appear the proposed amendment is intended to cure a deficiency in the current growth policy. The site currently contains a Residential land use designation on the Bozeman Community Plan future land use map, and the proposed amendment would change this designation on the entire site to Residential Emphasis Mixed Use (REMU). Refer to Appendix A of this report for descriptions of these designations and an explanation of the Bozeman Community Plan future land use map. Both the existing and proposed designations support primarily residential uses on the property. Both designations have implementing zoning districts which include authorizations for a variety of non-residential accessory, conditional, special, or principal uses. See Table C-16 below for more details on implementing districts. See municipal code Division 38.310 for the authorized uses in residential districts (Section 030) and for the authorized uses in the residential emphasis mixed use district (Section 040). In terms of whether the current proposal better responds to the needs of the general community and/or improves the growth policy, two primary questions arise: (1) Would the new designation better respond to the needs of the general community and/or improve the growth policy? (2) Would the intended land uses better respond to the needs of the general community and/or improve the growth policy?
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20-021, Staff Report for the Blackwood Grove Growth Policy Amendment (GPA). The property has several potential and existing points of access to public streets to the west, north, and east. These include Blackwood Road and S. 19th Avenue, arterial streets, and S. 11th Avenue, a collector street. Additional local street connections can also be extended from the site. The site is situated in a rapidly developing area dominated by residential subdivisions. Commercial centers are found approximately one mile to the north, but small community centers are not in close or convenient proximity to properly serve future residential development on this and immediately surrounding properties as the growth policy envisions. The City’s standard in the growth policy for smaller scale commercial service centers is approximately one-half mile radius spacing to enable ready walking and biking access. Public comment on several other developments in the area but west of S. 19th Avenue over the past year noted the absence of and desire to have more convenient access to commercial services from residential developments. Particular emphasis in that public comment was on the desirability of services within walking distance.
Goal LU-2: Designate centers for commercial development rather than corridors to encourage cohesive neighborhood development in conjunction with non-motorized transportation options.
Rationale: Transportation and land use are closely connected. A center based development pattern is more land and resource efficient and supports the goals of community and neighborhood development and sustainability. Future growth will cause additional demand for and use of transportation facilities. A center based development pattern can reduce future demand.
Objective LU-2.1: Locate high density community scale service centers on a one mile radius, and neighborhood service centers on a one-half mile radius, to facilitate the efficient use of transportation and public services in providing employment, residential, and other essential uses. Not all goals and objectives of the growth policy will be advanced with the proposed amendment. Some, such as the following, are applicable for any area being developed under any land use designation.
Objective T-1.4: Ensure that adequate interconnections are made throughout the transportation system to ensure a variety of alternatives for trip routing and reduce total travel distance.
Goal T-2: Ensure that a variety of travel options exist which allow safe, logical, and balanced transportation choices.
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20-021, Staff Report for the Blackwood Grove Growth Policy Amendment (GPA).
Rationale: Providing for a variety of travel options supports public health, reduces resource demand, and helps the City operate efficiently and cost effectively. Coordinated and cooperative efforts by all transportation system providers minimize the costs while maximizing benefits. There are improving transportation connections in the general area. Recent connection of Graf Street and S. 11th have established important links. These new street connections facilitate access to Montana State University and other destinations to the north. The development of adjacent property will include installation of sidewalks to support pedestrian connections. These improvements are planned and needed regardless of whether the property is designated as REMU or Residential. Therefore, the amendment is neutral to these goals and objectives. The REMU designation implementing zoning districts support more intensive residential development as well as opportunities for commercial uses limited in size and type to be residentially compatible. The land use category description on page 3-10 says in part “The Residential [Emphasis] Mixed-Use category promotes neighborhoods with supporting services that are substantially dominated by housing.” Both Residential and REMU are primarily residential in nature. Therefore, the degree of change in allowed uses is much more modest than a change between Residential and a dominantly non-residential land use designation. REMU enables the option for neighborhood support commercial uses without having to predict the exact location at the growth policy level. The large size and level topography of the site is relatively free from significant development constraints and lends itself to a mixed-use development capable of providing a diverse mixture of land uses that could result in a functionally more self-sufficient area of the City, including adjacent properties, where residents can rely less upon the more central commercial hubs in Bozeman. This could result in less reliance upon automobile transportation and develop a sense of community and successful local businesses. Furthermore, in an area largely dominated by residential development, opportunities for such mixed-use, planned developments with commercial amenities of the scale appropriate for these types of communities are becoming rare. Few larger tracts able to be readily served with municipal infrastructure are available. Smaller areas tend to be consumed by limited building-type residential neighborhoods. Providing more diversity and commercial opportunities within large tract developments of the size and location of this property on the community plan future land use map is
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20-021, Staff Report for the Blackwood Grove Growth Policy Amendment (GPA). more reflective of the plan’s goals and land use principles (see pages 3-3 to 3-5 of the growth policy).
Goal LU-1: Create a sense of place that varies throughout the City, efficiently provides public and private basic services and facilities in close proximity to where people live and work, and minimizes sprawl.
Rationale: A sense of community is strengthened by distinctive areas which facilitate neighborhood identity. This is strengthened when essential services are available and encourage informal interactions. Full featured neighborhoods allow extensive interaction and build identity with a specific part of the community. A sense of place does not prohibit change or continued evolution of the community. It also responds to the needs of a rapidly developing and evolving community, including not only the city of Bozeman as a whole, but also more local communities such as those adjacent areas and the one that could be developed on this property with a diverse mix of land uses. Furthermore, the surrounding neighborhoods could also be better served by future services and amenities to be developed in this new area proposed for REMU.
Goal C-1: Human Scale and Compatibility — Create a community composed of neighborhoods designed for the human scale and compatibility in which the streets and buildings are properly sized within their context, services and amenities are convenient, visually pleasing, and properly integrated.
Rationale: A community’s physical form, rather than its land uses, is its most enduring characteristic. We should design places for people as the primary user. Good design looks good and feels good. The spatial relationships in our environment in large part determine our experience of the place. Scale and context should be the beginning point of any discussion of community quality.
Objective C-1.1: - Expand design review programs citywide to ensure well designed spaces throughout the community.
Objective C-1.2: - Update design objectives to include guidelines for urban spaces and more dense development.
Goal H-1: Promote an adequate supply of safe, quality housing that is diverse in type, density, cost, and location with an emphasis on maintaining neighborhood character and stability.
Rationale: A community needs a variety of housing stock to accommodate the diversity in personal circumstances and preferences of its population. The type of housing required may be different throughout a person’s life. A healthy
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20-021, Staff Report for the Blackwood Grove Growth Policy Amendment (GPA). community has a wide range of citizens with differing age, education, economic condition, and other factors. Stable neighborhoods encourage reinvestment, both financial and emotional that strengthens and builds the community.
Objective 1.1 - Encourage and support the creation of a broad range of housing types in proximity to services and transportation options. The above goals and objectives have been implemented in revisions and updates to the City’s development standards. Provisions for urban open spaces, buildings oriented to the street, public parks, transitions of building height between zoning districts, affordable housing, and many other elements addressing Goal C-1 are now minimum standards of the municipal code. Change from Residential to REMU will facilitate the opportunity for provision of additional services and amenities conveniently close to existing development (within the one-half mile standard noted above) and a diverse housing stock while not inserting more intensive uses into existing developed housing areas.
Goal C-3: Neighborhood Design – New neighborhoods shall be pedestrian oriented, contain a variety of housing types and densities, contain parks and other public spaces, have a commercial center and defined boundaries.
Rationale: Good neighborhoods allow choices in housing, recreation, modes of transportation, options for commerce, work, and entertainment while providing a healthy environment and a sense of place and identity that residents can call home. Neighborhoods are more expansive than individual subdivisions. As neighborhood design is described in Goal C-3 above, a diversity of zoning districts supporting a range of uses may be needed to address all the elements. Such a diversity is often developed through a combination of different subdivisions. The REMU land use designation is the designation that most easily addresses all the various elements. Table C-16 of the Bozeman Community Plan identifies the implementing zoning districts of the current and proposed land use designation. Both allow for several different zoning districts that authorized a wide range of possible future development. There are no zoning districts which are limited to only one type of development. All zoning districts under either the Residential or Residential Emphasis Mixed Use designations provide for a range of housing types, institutions, and commercial activities. The expansiveness and intensity allowed varies between districts. The change to REMU facilitates the potential
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20-021, Staff Report for the Blackwood Grove Growth Policy Amendment (GPA). for a variety of commercial services on the site but does not require them. Neither designation requires development to occur on any particular schedule or sequence.
Black dots in each cell of the table indicate that an individual zoning district may implement
a particular plan category. The site is on either side of the planned location of Blackwood Road. Blackwood Road will connect S. 19th Avenue and S. 3rd Avenue. The intersection of Blackwood Road and S. 19th Avenue is the next likely location for a traffic signal on S. 19th. A future traffic signal will facilitate safe pedestrian crossing of the intersection. The proposed amendment advances goals and objectives of the Bozeman Community Plan including, but not limited to, those cited above. Section 2.1 of the growth policy identifies guiding principles used in the preparation of the Bozeman Community Plan. These include: Strives to achieve a fair and proper balance among conflicting interests, to protect the rights of citizens, and to affirm community values as they have been expressed by citizens and throughout the planning process.
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20-021, Staff Report for the Blackwood Grove Growth Policy Amendment (GPA). Realizes interrelated goals for land use, housing, transportation, environmental concerns, and economic development . Public comments have been received expressing concerns about possible impacts to adjacent property owners if the requested amendment is approved. This type of concern is what the identified principles in 2.1 seek to address. A growth policy is a balance of many different views of what is good and appropriate for the community as a whole and smaller areas within it. The Neighborhoods land use principle on page 3-3 says in part: “There is strong public support for the preservation of existing neighborhoods and new development being part of a larger whole, rather than just anonymous subdivisions.” Without question, development of adjacent vacant property impacts already developed property. Those impacts may be negative, positive, or a mix of both negative and positive. Individuals may have divergent opinions on whether any development is an asset or injury depending on how they individually weight issues of concern. To give weight to all the various priorities of the community requires that not every issue be maximized to the detriment of others. As shown in the citation above and throughout the Bozeman Community Plan the City has many areas of interest and concern that must be considered. Advancing those goals as a whole may impact some citizens more than others. To enable consideration of possibly conflicting interests the City has established the growth policy amendment process and criteria. The process enables affected parties to express their support or concern, seek information, and be heard before any decision is made. This process enables consideration necessary to meet the required fair and proper balance, protect rights, and affirm community values. Future development of the property as REMU will address a greater range of the goals and objectives of the growth policy than the present designation of Residential. A review of the growth policy did not find elements that materially conflicted with the proposed amendment. Staff finds that the amendment improves the growth policy and better responds to the needs of the general community by providing the greater possibility of needed services in proximity to new and existing residential development.
2. The proposed amendment does not create inconsistencies within the growth
policy, either between the goals and the maps or between different goals and
objectives.
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20-021, Staff Report for the Blackwood Grove Growth Policy Amendment (GPA). Staff reviewed the growth policy goals and objective and future land use map. The proposed amendment to change 119.45 acres from Residential to Residential Emphasis Mixed Use does not create any identified inconsistencies within the growth policy goals or between goals and maps. See discussion for Criterion 1. The change and subsequent annexation and rezoning would allow for mixed-use development applications to be pursued and reviewed by the City of Bozeman. Given this relatively large site’s proximity to the surrounding residential developments and commercial city growth to the north, and with the property being within the municipal service area boundaries and proposed for annexation into the city limits, the site is a logical location for the Residential Emphasis Mixed Use designation and the potential zone change to the city’s REMU zoning district. All future development must demonstrate compliance with all regulatory standards addressing transportation, parks, building design, and all other standards. The standards have been crafted and adopted to implement the goals and objectives of the growth policy. Therefore, compliance with the standards will ensure this criterion is met.
3. The proposed amendment must be consistent with the overall intent of the
growth policy. The overall intent of the growth policy is to proactively and creatively address issues of development and change while protecting public health, safety and welfare (page 1-1). If approved, the proposed amendment to the future land use map will allow the entirety of the project site to be considered for future applications that, if approved, would allow development of the currently intended mixed-use, residential-emphasis neighborhood with a goal toward diversity of housing types, commercial, service, and recreational amenities. The change will allow more space for neighborhood design that incorporates nodes of commercial development directed at the local neighborhood, with less day-to-day reliance upon the larger commercial hubs around Bozeman that are more distant. However, it must also be considered that the amendment is not bound to any currently proposed project but must be considered as adequate independent of any specific proposal. All implementing zoning districts for the REMU future land use designation limit and restrict the scope and intensity allowed for non-residential development and residential development. As discussed under Criterion 1, there is a greater correlation of the REMU to the goals, which implement the intent of the growth policy, than the present Residential designation.
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20-021, Staff Report for the Blackwood Grove Growth Policy Amendment (GPA). The mixed-use development on the subject property is likely to support existing and future residential development by providing an economic base for the developing area. One of the seven key principles that the growth policy focuses on is the ‘center-based’ planning concept, which is intended to “strengthen a pattern of community development oriented on centers”. The proposed mixed-use designation of the site to accommodate the intended mix of appropriate land uses supports the overall intent of the growth policy. At this time, it is be noted that the growth policy’s description of ‘centers’ is based on the corollary principle of ‘compact’ development, discussed as follows in Chapter 3, page 3-4:
• Commercial activities in mutually reinforcing centralized areas provide:
o Increased business synergy.
o Greater convenience for people with shorter travel distances to a wide range of businesses.
o The opportunity to accomplish several tasks with a single trip.
o Facilitates the use of transportation alternatives to single occupant motor vehicles, with a corresponding reduction in traffic and road congestion and air quality impacts.
o Enables greater access to employment, services, and recreation with a reduced dependence on the automobile.
o Greater efficiencies in delivery of public services.
o Corresponding cost savings in both personal and commercial applications.
• The center-based concept is expected to require less land for actual business activities due to efficiency such as shared parking. It also changes the shape of the commercial areas. The center-based development pattern is supported in this plan 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 the commercial activities. Centers are further supported through careful location of higher density housing in a manner that provides support for commercial operations while providing amenities to residents. REMU supports the mixed use approach described above. By itself, the REMU land use designation does not compel construction of mixed uses. Implementing zoning will be considered as part of the annexation and zoning map amendment process. Selection of zoning districts will further support the ability to carry through on the intent of the REMU district. Zoning provides options but also does not compel construction of a specific building types. However, both the land use designation of the growth policy and the
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20-021, Staff Report for the Blackwood Grove Growth Policy Amendment (GPA). intent statements of the implementing zoning influence the design and review of any proposed subdivision or site development. REMU provides a greater scope for non-residential uses while maintaining a primarily residential nature. The area of this amendment is large enough to provide locations on street classification adequate to support both residential and non-residential traffic. Intersections of significant streets are more suitable locations as they enable trip chaining and trip capture of passing vehicles. This supports lower travel demand. Commercially successful businesses require adequate customers. REMU designation of larger areas in conjunction with good street connectivity is more likely to enable the critical mass of customers needed to support commercial success. By providing for sufficient space for a mixed-use development capable of providing a mixture of housing types, price points and supporting commercial and recreational opportunities, the proposed change in land use designation from Residential to Residential Emphasis Mixed Use will be consistent with the overall intent of the growth policy.
4. The proposed amendment will not adversely affect the community as a whole
or significant portion by:
a) Significantly altering land use patterns and principles in a manner contrary to
those established by this plan, No, the proposed map amendment does not significantly alter land use patterns from those established by the plan. The existing land use designation is Residential and the proposed land use designation is Residential Emphasis Mixed Use. The amendment expands opportunity for non-residential uses that better support the ‘center’ based planning concept and more self-reliant communities. Residential Emphasis Mixed Use zoning district limits non-residential uses to not more than 30% of total floor area in the district. The other implementing zoning districts, see Table C-16 above, are significantly similar and provide for a mix of residential and non-residential uses. The primary use of land under either designation remains residential. There are opportunities for non-residential and institutional uses within either designation. This provides for an emphasis on residential uses while providing for commercial uses to serve the neighborhood. While the change from Residential to Residential Emphasis Mixed Use could seemingly result in less opportunity for needed housing,
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20-021, Staff Report for the Blackwood Grove Growth Policy Amendment (GPA). the additional flexibility supported in development standards should offset any impacts. The implementing zoning designations for both designations as shown on Table C-16 above have significant overlapping options. Five of the six implementing zoning districts for REMU are also implementing districts for the Residential designation. Although there is a change in designation, Staff finds the change will not significantly alter the land use pattern contrary to the Bozeman Community Plan. As discussed in Criterion 1, the amendment advances goals and principles of the growth policy and therefore is not contrary to the growth policy. b) Requiring unmitigated larger or more expensive improvements to streets, water,
sewer, or other public facilities or services, thereby impacting development of
other lands, No negative impacts to other lands or the community are anticipated as a result of the proposed growth policy amendment. The site is provided multiple access points to established public roads and is within the planned service area for municipal utilities. The water, sewer, and transportation facility plans broadly identify various improvements needed to serve the area. These will be needed with either the current designation or the proposed amendment to the future land use map. Connection of major streets such as Blackwood Road or looping of large diameter water lines are examples of such improvements and will occur with any proposed development. All residential development regardless of land use designation or zoning district must mitigate park impacts. Therefore required improvements are not unmitigated nor will negatively impact development of other lands. A wide range of possible intensity of development can occur depending on the implementing zoning district applied. All zoning districts have a significant variety of development possibilities. Therefore, exact needs for future infrastructure cannot be predicted at this time. Future development requires municipal review for any additional impacts and will be evaluated at that time. Therefore, there is no evidence that unmitigated improvements will be required as a result of this amendment. c) Adversely impact existing uses because of unmitigated greater than anticipated
impacts on facilities and services, No adverse impacts have been identified at this time. Residential uses will be the dominant use for the site under either the present designation or the proposed
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20-021, Staff Report for the Blackwood Grove Growth Policy Amendment (GPA). amendment. Additional review will occur during site development and mitigation of any potentially adverse impacts will be addressed at that time, as required by municipal code. This approach enables mitigation to be proportionate to the proposed development as required by law.
d) Negatively affect the livability of the area or the health and safety of the
residents. The change from a farm field to urban development will change the character of the site. The additional development will create additional traffic, noise, and other impacts inherent in the presence of people. These changes will affect adjacent residents who have had a less intense farm use next to them for a long time. These changes will occur regardless of the land use designation. What may be different is the scope of the changes. Designation of this site as Residential Emphasis Mixed Use will provide more opportunity for commercial uses on the property while still allowing appropriate residential uses as the greatest part of a mixed-use development. The exact mix and nature will be influenced by the future decision of an implementing zoning district. If the project is designed appropriately, it can remain compatible with surrounding land uses and should not negatively affect the livability of the area or the health and safety of residents. The land use change allows for additional opportunity for a mixed-use neighborhood with conveniently located commercial uses and employment opportunities to meet the expanding demands of the new neighborhood and growing surrounding neighborhoods in an area that is appropriate and compatible for such uses. The standards for mitigating development impacts contained in Chapter 38 of the municipal code remain in place for either designation. These have been adopted to protect health and safety and also to protect livability of the community. Therefore, staff does not find any negative affects to this criterion.
APPENDIX A - PROJECT SITE ZONING AND GROWTH POLICY
Zoning Designation and Land Uses: The property is currently outside the Bozeman city limits and is zoned by Gallatin County as AS (Agriculture - Suburban District) per the Gallatin County / Bozeman Area Zoning District Map certified 11-16-2018. The applicants have also applied for annexation into the Bozeman city limits and an initial Zone Map Amendment (ZMA). The ZMA application will be reviewed by the Zoning
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20-021, Staff Report for the Blackwood Grove Growth Policy Amendment (GPA). Commission at a public hearing on a date to be scheduled. The Annexation proposal and ZMA application is anticipated to be reviewed by the City Commission at a public hearing on June 15, 2020. The property has historically been used agriculturally for crop production, and is a field with the exception of a small, agricultural grain storage building in the southwest corner.
Adopted Growth Policy Designations: The following designations are applicable to this application.
Existing – Residential. The growth policy description of this category is: “This category
designates places where the primary activity is urban density dwellings. Other uses which
complement residences are also acceptable such as parks, low intensity home based
occupations, fire stations, churches, and schools. High density residential areas should be
established in close proximity to commercial centers to facilitate the provision of services and
employment opportunities to persons without requiring the use of an automobile.
Implementation of this category by residential zoning should provide for and coordinate
intensive residential uses in proximity to commercial centers. The residential designation
indicates that it is expected that development will occur within municipal boundaries, which
may require annexation prior to development.
The dwelling unit density expected within this classification varies between 6 and 32 dwellings
per net acre. A higher density may be considered in some locations and circumstances. A variety
of housing types can be blended to achieve the desired density. Large areas of single type
housing are discouraged. In limited instances the strong presence of constraints and natural
features such as floodplains may cause an area to be designated for development at a lower
density than normally expected within this category. All residential housing should be arranged
with consideration of compatibility with adjacent development, natural constraints such as
watercourses or steep slopes, and in a fashion which advances the overall goals of the Bozeman
growth policy. The residential designation is intended to provide the primary locations for
additional housing within the planning area.”
Proposed – Residential Emphasis Mixed Use. The growth policy category description reads: “The Residential Mixed-Use category promotes neighborhoods with supporting services
that are substantially dominated by housing. A diversity of residential housing types should be
built on the majority of any area within this category. Housing choice for a variety of households
is desired and 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.
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20-021, Staff Report for the Blackwood Grove Growth Policy Amendment (GPA).
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 which encourages pedestrian activity and provides
ready access within and to adjacent development.”
Future Land Use Map. The growth policy states, “[The future land use map] is a synthesis of
many different ideas, public input, existing conditions, and existing and desired land use
patterns for the future. The map is the visual representation of the land use patterns and ideas
discussed in this chapter, and elsewhere throughout this document. The map shows in a very
broad manner acceptable uses and locations throughout the community. It does not represent
a commitment by the City to approve every development proposed within each category.
Neither does a designation indicate that a property is free from constraints to development.
The map and other elements of this plan must be weighed and evaluated in conjunction with
the specific details of a proposed project which are beyond the scope of this plan but will be
addressed through the implementation tools discussed in Chapter 16 and Appendix I. The
provisions of any intergovernmental agreement between the City and County regarding land
use will influence the final development pattern with the defined planning area…
This plan looks at a twenty-year horizon as well as the current situation, so it is to be expected
that some areas which are not in conformance with the plan will be identified. This plan
recognizes the presence of these uses without specifically mapping or otherwise identifying
them. It is desired that these anomalies be resolved over the term of this plan so that the land
use pattern identified herein may be completed.”
Table C-16 Zoning Correlation With Land Use Categories
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20-021, Staff Report for the Blackwood Grove Growth Policy Amendment (GPA).
Black dots in each cell of the table indicate that an individual zoning district may implement a
particular plan category.
APPENDIX B - DETAILED PROJECT DESCRIPTION AND BACKGROUND
Project Description A growth policy amendment proposal to revise the future land use map from Residential to Residential Emphasis Mixed Use on 119.45 acres. The GPA application elaborates on the project as follows:
“Succinctly, Blackwood Groves is envisioned as a walkable, lifestyle-oriented, mixed-use
community, which consists of a diverse set of residents with a range of income and
demographics, that also provides amenities and services to all surrounding neighborhoods.
The Property, approximately 2.5 miles south of Downtown Bozeman, is situated with
panoramic views to the Bridger Range to the north, Gallatin Range to the east, Spanish
Peaks to the south, and Madison Range to the west. The community is specifically planned
to embrace the Property’s proximity, natural features and stunning vistas to create a public
realm that is seamlessly connected to greater Bozeman and distinct in its inherent
walkability and sense of place. The neighborhood will live around a dynamic center that is
planned to serve as a hub of community-oriented amenities such as restaurants, retail and
commercial services, entertainment and recreational activities. This mixed-use hub of
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20-021, Staff Report for the Blackwood Grove Growth Policy Amendment (GPA).
amenities and services will be surrounded by a variety of housing types and price points,
specifically intended to encourage a diverse and dynamic mix of residents with a range of
demographics and income levels. This is of particular importance given the proximity of
significant education centers to the Property – namely Sacajawea Middle School, Morning
Star Elementary and Montana State University. The residential and mixed-use town center
neighborhoods within the Property are envisioned to be interconnected by a series of parks,
plazas, natural open spaces and biking/hiking trails that celebrate the connection to the
outdoors and encourage vehicles to be used as a last resort – instead of the first (or more
often, the only) option. This series of multi-modal connections throughout the Property,
along with well-planned and activated streetscapes, are intended to encourage a social
atmosphere within the community.” It is expected that further details of the project plans, design and associated infrastructure improvements will be provided with future development applications that will be submitted to the City of Bozeman for review if the growth policy amendment is approved. Approval of the requested growth policy amendment is not dependent on and does not guarantee completion of the project as described above.
APPENDIX C – NOTICING AND PUBLIC COMMENT Notice was sent via US first class mail to the owners of the subject property and all owners of property located within 200 feet of the perimeter of the site. The project site was posted with a copy of the notice in two locations: along S. 19th Ave. and at the terminus of S. 11th Ave. The notice is to be published in the Legal Ads section of the
Bozeman Daily Chronicle on March 1 and 14, and April 5, 2020. The Planning Board public hearing was scheduled for March 17, 2020. Due to meeting closures for COVID-19 the March 17th meeting was cancelled. The meetings were rescheduled and new notices published on May 9th, 17th, and 31st, 2020 and posted on site and mailed first class to allow landowners within 200 feet of the site. Seven written public comments have been received regarding this project. Two reference characteristics of future development rather than the growth policy amendment itself. Copies are attached with this report.
APPENDIX D - OWNER INFORMATION AND REVIEWING STAFF
Owner: Blackwood Land Fund LLC, 140 Village Crossing Way, Unit 3B, Bozeman, MT, 59715
Applicant: Bridger Builders, 115 West Kagy Blvd., Suite L, Bozeman, MT, 59715
Representative: C&H Engineering and Surveying, Inc. (contact: Matt Hausauer), 1091
Stoneridge Drive, Bozeman, MT, 59718
Report By: Chris Saunders, AICP, Community Development Manager
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20-021, Staff Report for the Blackwood Grove Growth Policy Amendment (GPA).
FISCAL EFFECTS No unusual fiscal effects have been identified. No presently budgeted funds will be changed by this growth policy amendment.
ATTACHMENTS The full application and file of record can be viewed at the Community Development Department at 20 E. Olive Street, Bozeman, MT 59715. Application materials Public comments to date