HomeMy WebLinkAbout10-06-20 City Commission Packet Materials - WS1. Community Plan-Growth PolicyPage 1 of 30
16-521, City Commission Staff Report for adoption of a new growth policy in 2020.
Public Hearing Dates:
Planning Board Meeting (Public Hearing) July 21, July 28, and August 10, 2020 at 6:00 pm.
Meetings held via WebEx, a video conferencing system.
City Commission public hearing at October 6 and 20, 2020, 6:00 pm. Meeting to be held via
WebEx, a video conferencing system.
Project Description: Adoption of a new growth policy to entirely replace the existing growth
policy. A growth policy documents community values, establishes goals, and translates those to
planning for locations and nature of future land development. The adopted growth policy guides
development of regulations, annexation, infrastructure installation and funding, and budget
priorities. No final action will be taken at this hearing, direction for revisions to the draft document
may be given.
Project Location: The proposed growth policy applies to the entire City and looks outwards to
include property within the future potential municipal water and sewer services area. The boundary
of the planning area is shown in Chapter 3 of the growth policy and Section 1 of this report.
City Commission motion: No motion is recommended at this time, a recommendation will be
made later.
Report Date: September 24, 2020
Staff Contact: Chris Saunders and Tom Rogers
Agenda Item Type: Action- Legislative
EXECUTIVE SUMMARY
Unresolved Issues
This draft growth policy comes to the City Commission with several questions for
consideration. These questions are a natural part of the review process for such a document
and are not deficiencies. Some, such as question 2, are a result of the plan taking a new
direction from prior documents.
1. Does the City Commission find the Planning Board’s recommended document suitable for
the community and consistent with the required purposes of a growth policy?
2. Chapter 4, Implementation, proposes a variety of metrics to measure outcomes of the plan.
The Department of Strategic Services is also developing metrics for a variety of City
functions. Planning and Strategic Services staff are developing a coordinated memo
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identifying metrics that are already being tracked, those which the City has already
committed to track for other purposes, degree of City control on the tracking method and
metric, and difficulty of performing the suggested tracking. Due to COVID and other work
load issues, this work is still underway. Staff anticipates providing this information to the
City Commission for the 2nd of the public hearings on October 20th. In the meantime, the
City Commission may consider whether the metrics proposed in Chapter 4 appear suitable.
If approved, an early implementation step will be to establish methods and means to track
the metrics, establish targets where applicable, and have the City Commission approve the
proposed methods, means and targets.
3. Public comment will be received during the public hearings for the Bozeman Community
Plan 2020. The City Commission must consider those comments and determine whether
or not to make revisions to the document.
4. Staff has identified a few minor items for revision in the document as shown in the attached
document. As the public comment period proceeds, Staff may identify further
recommended changes in response to the public comment.
Project Summary
The City conducts long range planning to:
1. Protect the public health and safety and advance the well-being of the community at
large, while respecting and protecting the interests of individuals within the community.
2. Provide a supportive framework for private action which balances the rights and
responsibilities of many persons.
3. Facilitate the democratic development of the public policies and regulations that guide
the community.
4. Improve the physical environment of the community as a setting for human activities,
more functional, beautiful, healthful, and efficient.
5. Coordinate technical knowledge, political will, and long-range thinking in community
development in both short and long term decisions.
6. Identifies the citizen's goals and priorities for their community and how they wish to
carry out those ideals.
7. Encourage efficiency and effectiveness by government through coordinated policies and
programs.
8. Serves as a reference bench mark for community priorities, physical attributes such as
size, and social and economic information such as housing and jobs. A growth policy is
an abstract of a community.
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9. Support economic development by providing basic information about the community to
prospective citizens and employers. A well done, and implemented, plan shows that a
community is actively trying to improve their area.
The formal term in state law for a community’s comprehensive plan is ‘growth policy’. The
development of a growth policy is a primary responsibility of the Planning Board and is
directed by Sections 76-1-601 through 76-1-606, MCA.
The growth policy sets broad policy standards and coordinates between many municipal
functions. It is the land use policy document for the community. Since the adoption of the
Bozeman Community Plan in 2009, Bozeman has grown in both area and population. The plan
held up well under the strain but needed to be updated to address changing conditions. The
City Commission directed the Planning Board and Staff to prepare an update in 2016. The
process began with data collection summarized in the 2018 report by Economic Planning
Systems.
The Planning Board conducted many public meetings and outreach events to garner input
from the community. The proposed plan had been posted to the project website and
advertised. The Planning Board accepted public comment and began a review of the
document. The Planning Board directed a number of changes to the text and future land use
map. On June 16, 2020 the Planning Board directed changes to the document and that a
public hearing be advertised for consideration of adoption of the revised draft.
The directed changes have been completed. A new draft has been published and noticed to
the public. A revised document incorporating all Planning Board amendments to the text and
map are included in this transmittal to the City Commission.
This staff report may be updated and revised as the public review proceeds. For additional
background information and discussion about the City’s considerations about growth please
see Appendix D.
Substantive changes from the growth policy currently in effect
The Bozeman Community Plan 2020 (BCP) largely confirms and carries forward community
priorities established in prior growth policies. The following items are significant changes
between the proposed draft plan and the existing adopted plan. To see all changes review the
documents. The current document is 2009 Bozeman Community Plan. The text of the Proposed
new growth policy is linked here.
1. Narrower focus. The City has adopted several additional plans for sustainability, affordable
housing, and other topics since the last growth policy. The Planning Board deliberately narrowed the focus of the proposed draft to emphasize land use. Therefore, subjects with their own plans have less discussion and there are fewer chapters in the proposed draft. People wanting information on those subjects should see the specific topic plan they are interested in.
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2. Slightly expanded planning area. The planning area boundary was expanded in two areas
to allow examination of community edges and transition to County areas as well as to
coordinate with other facility plans. The two changes are along Huffine Lane to include the Rae Water and Sewer district and in the northwest corner of planning area.
3. Document formatting. The Bozeman Community Plan uses a different document format and structure. Chapter structure, page layout, and inclusion of web links to access on-line
documents referenced in the plan are provided. Chapters are considerably shorter and are
primarily focused on the goals and objectives. Background information is contained in the appendices or the independent topic plans.
4. Increased emphasis on mixed use. The Urban Neighborhood category in particular is broader in its language. Some of the land use categories have been renamed and
consolidated.
5. Future Land Use Map. The future land use map, see Chapter 3, has two substantial changes. A. The map does not show only the use of land needed to serve new population expected over the 20 year reach of the growth policy. Instead, the map shows how the City thinks land throughout the planning area should develop in the future if the landowners choose to
change from its current use. This may take very many years to come to pass. The City
continues its encouragement of annexation occurring prior to development of land.
B. The Business Park Mixed Use and Suburban Residential categories were removed from the land use categories. All of these areas have been changed to another category. Several categories from the 2009 growth policy were aggregated into the Parks and Open Lands
category.
6. Access to the final document is expected to be primarily through the City’s website. The future land use map in particular is of a scale that it is easier to read and understand with this method. Access through the web also facilitates review of the map is association with other information such as stream locations or zoning.
Planning Board Recommendation
After the advertised public hearing on July 21, 2020, the Planning Board continued their
discussion to July 28th and August 10th. The Planning Board recommended a draft document
to the City Commission with several amendments. Hyperlinks to the public hearing video
recordings are provided above with each date.
In addition to the formal recommendation transmittal by Resolution of the Planning Board,
the Planning Board also made the following recommendations regarding the updated growth
policy. These are separated from the document as the Planning Board concluded they were
more in the nature of suggestions or operational actions rather than plan draft text.
• The Planning Board recommends to the city commission that actions, staff, and
budgetary resources relating to the update of the NCOD be given a high priority
• The Planning Board recommends to the City Commission that actions, staff, and
budgetary resources relating to the mitigation of the “Missing Middle” problem including
revisions to the UDC be given the highest priority
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• The Planning Board recommends to the City Commission that action, staff, and
budgetary resources, related to affordable housing be given a high priority.
• The Planning Board recommends adding more graphics and illustrations to the document.
Alternatives
1. Approval of the growth policy;
2. Approval of the growth policy with modifications;
3. Return the growth policy to the Planning Board with direction to address certain issues;
3. Do not adopt the growth policy.
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TABLE OF CONTENTS
EXECUTIVE SUMMARY ...................................................................................................... 1
Unresolved Issues ............................................................................................................... 1
Project Summary ................................................................................................................. 2
Substantive changes to the growth policy ........................................................................... 3
Planning Board Recommendation ...................................................................................... 4
Alternatives ......................................................................................................................... 5
SECTION 1 – MAP AND ILLUSTRATION SERIES ............................................................ 7
SECTION 2 - RECOMMENDATIONS AND FUTURE ACTIONS .................................... 12
SECTION 3 - STAFF ANALYSIS AND FINDINGS ........................................................... 12
Purpose 1. Improve the present health, safety, convenience, and welfare of their
citizens. 13
Purpose 2. Plan for the future development of their communities to the end that
highway systems be carefully planned; ............................................................................ 14
Purpose 3. That new community centers grow only with adequate highway, utility,
health, educational, and recreational facilities; ................................................................. 14
Purpose 4. That the needs of agriculture, industry, and business be recognized in future
growth; 15
Purpose 5. That residential areas provide healthy surroundings for family life; ........... 18
Purpose 6. The growth of the community be commensurate with and promotive of the
efficient and economical use of public funds. .................................................................. 18
APPENDIX A - COORDINATION WITH GALLATIN COUNTY AND OTHERS .......... 19
APPENDIX B – NOTICING AND PUBLIC COMMENT ................................................... 20
APPENDIX C - REVIEWING STAFF .................................................................................. 22
APPENDIX D – PROJECT BACKGROUND ....................................................................... 22
To grow or not to grow? If so, how? ................................................................................ 23
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SECTION 1 – MAP AND ILLUSTRATION SERIES
Map 1: Proposed Planning Area Boundary, Bozeman Community Plan 2020. Current City limits
shown in white. Orange outlined area is where the City currently has water/sewer services
available.
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Map 2: Future Land Use Map, Bozeman Community Plan, page 47. See the online version for
ability to zoom in to individual properties. Primary access to the map after adoption will be through
the City’s website.
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Map 3: Context Map indicating development and lot size patterns throughout the planning area.
A full sized version is an attachment to this report. See discussion in Appendix D.
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Map 4: Regional Context Map
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Illustration 1: Population Trend in City of Bozeman, MT
Illustration 2: Plan Creation Process Summary
18,630
21,645
23,809
22,660
27,555 28,083
34,698
37,326
43,399
51,400
0
10,000
20,000
30,000
40,000
50,000
60,000
1970 1980 1985 1990 1995 2000 2005 2010 2015 2020
Bozeman Population
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Illustration 3: Growth Policy Relation to Zoning and Land Development. Page 10 of BCP
SECTION 2 - RECOMMENDATIONS AND FUTURE ACTIONS
Having considered the criteria established for a growth policy map amendment, the Staff finds the
draft document meets the requirements of state law and can be adopted.
The Planning Board has voted to recommend a draft of the Bozeman Community Plan 2020
document. The Resolution transmitting the recommendation is attached to this report. The
Resolution of transmittal was passed unanimously.
The City Commission will hold public hearing(s) on the growth policy prior to any action to
approve, amend or reject the document. The City Commission hearings will begin on October 6,
2020, and will be continued to dates certain as the process advances.
SECTION 3 - STAFF ANALYSIS AND FINDINGS
Planning staff reviewed this application for a growth policy against the criteria set forth in Section
76-1-102 MCA. Staff found that this proposal satisfies all of the required review criteria.
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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.
There are required steps to adopt or revise a growth policy. For this growth policy, the Planning
Board conducted the multiple public hearings after proper notice both during development of the
document and for the public to review and comment on the document proposed by the Planning
Board. The Planning Board has provided a recommendation by resolution. The City Commission
adopted a resolution of intent on August 25, 2020. The City Commission’s hearing(s) will be
given proper notice. At the City Commission hearing all interested parties can learn about the
plan, express their views, and hear the City Commission discussion on the matter. After these
steps occur the City Commission may adopt, revise, or reject the growth policy.
In considering an applications for approval of a new growth policy, the Planning Board and City
Commission must consider the following criteria. As adoption of a growth policy is a legislative
action, the City Commission has broad latitude to determine policy direction.
Section 76-1-601 MCA specifies the required contents of a growth policy. The same section also
allows for a number of voluntary items. State law allows substantial community discretion in
addressing the required subjects. Attached to this report is a table showing where all required
elements have been addressed.
This is a complete replacement and not an amendment. Therefore, the amendment criteria of
Chapter 17 of the present growth policy do not apply. There are no specific review criteria for
adopting a growth policy in state law. However, 76-1-102 MCA establishes the purposes for
planning. Lacking other defined statutory criteria, these purposes are the standard against which
adoption of a growth policy is measured by the City. These items overlap in various ways and
working on one will often advance another. The description below is a summary. The complete
intent and compliance with criteria may be evaluated by reviewing the full document, supporting
special topic plans, as well as this report.
Purpose 1. Improve the present health, safety, convenience, and welfare of their citizens.
The BCP meets this criterion by coordinating between multiple facility plans. Since the
previous growth policy was adopted the water, sewer, fire, and transportation facility plans
have all been updated. The facility plans address transportation, fire protection, parks and
recreation, water, wastewater, and other services. All of these facilities protect health and
safety. Safe and functional transportation supports timely emergency responses. Water
systems support suppression of fire and avoidance of communicable disease. Parks and trails
encourage a physically active and healthy community. Other elements of the plan such as
support for economic development support the general welfare by encouraging an
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economically vigorous community with resources to meet the needs of citizens. By
establishing common community goals and aspirations, land use regulations can be drafted
and policies enacted to advance those goals. The BCP addresses the purposes of planning
identified in the statutory purposes of planning.
Health, safety, convenience, and welfare are issues woven throughout the document and
the various topic specific plans for various City functions. The requirements for an
infrastructure plan and coordination with Gallatin County are included in Appendix E of the
document. Effective collaboration improves all of the elements in this criterion.
Purpose 2. Plan for the future development of their communities to the end that highway
systems be carefully planned;
The City, Gallatin County, MDT, and others participate in coordinated transportation
planning through the Transportation Coordinating Committee. A new municipal
transportation plan was adopted in 2017. The transportation plan covers the same planning
area as the BCP. The street character and layout is consistent with the BCP. The BCP
establishes goals and policies which supports development of a fully functional, multi-modal
transportation system as does the transportation plan. See especially Chapter 2, Theme 5. The
transportation plan and BCP allow coordination across jurisdictional boundaries so that as
annexation occurs and roads or other transportation means are developed the transportation
system will function efficiently.
The City of Bozeman, City of Belgrade, and Gallatin County have prepared the Triangle
Community Plan (TCP) to facilitate coordination between the jurisdictions in the areas where
their planning areas overlap. A key element of the TCP is coordination of transportation
systems and standards. The adoption process for the TCP has been completed with adoption
by all three participants. Bozeman accepted the TCP in April 2020. Implementation of the
TCP has taken initial steps with beginning of a trails plan for the Triangle area now
underway.
Chapter 2, Theme 5 of the BCP establishes policies and outcomes for mobility. Integration of
land use planning and transportation planning is encouraged. Support for adequate
transportation through many modes and alternatives is stated. This is a continuation of policy
from prior planning efforts.
Purpose 3. That new community centers grow only with adequate highway, utility, health,
educational, and recreational facilities;
The BCP continues established policies for concurrency of infrastructure necessary to
meet the needs of development. These policies have been formalized as development
standards and requirements in the municipal code. The various facility plans referenced in the
BCP describe service levels and facilities required to meet current and future needs. The
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facility plans are periodically updated as needed, generally on a 7-10 year cycle. As plans are
updated the new information is integrated with the growth policy during its regular updates.
Chapters 26, 32, 34, 36, 38, 40, and 42 of the municipal code enact these plans and purposes
through regulations. The facility planning process enables engagement with the public as
well as other agencies such as Gallatin County. Formal coordination such as mutual aid
agreements for emergency services, the Transportation Coordinating Committee, the
Planning Coordination Committee, and others support and facilitate interagency interaction
and support.
Some of these items are provided by an entity other than the City of Bozeman. Those
items are also addressed with a demonstration of compliance being required during the land
development review process. The intent of this criterion is brought into physical existence
through the land development standards adopted by the City and other regulatory agencies.
The City does not control or direct the School District in acquiring property or
construction of school facilities. However, the City does engage with the School District
through their long range planning committee and the growth policy is a valued resource in
that work. The City and School District have an interlocal agreement regarding establishment
of minor and major projects. By planning for the future the City enables school districts to
consider future land use patterns when they acquire property for future schools.
In locating commercial nodes on the future land use map, location of major transportation
routes and other facilities as depicted in the various facility plans was considered. Placement
at major intersections establishes a basis for sense of place, interacts with and supports multi-
modal transportation, and has potential to reduce total travel demand by enabling trip
chaining and pass-by trips.
Adequate provision of water supply and disposal is strongly affected by external
regulations. Clean Water Act standards and other regulations such as state water rights are
beyond the City’s control. Acts by implementing agencies to be responsive to municipal
needs or to place obstructions to compliance and provision of services to a growing
community may be the ultimate limit on ability of the City to expand in population or area.
Purpose 4. That the needs of agriculture, industry, and business be recognized in future
growth;
The BCP sets aside a land base for all of these activities. The land use pattern, provision
of timely and adequate infrastructure, and overall community health supported in the plan
support a healthy economy. Policies encourage the development of local production and
businesses in a wide range of areas, including agriculture. The future land use map in
Chapter 3 includes a land base adequate to meet the expected needs of the community for
economic activity for the planning period of the growth policy, at least the next 20 years. The
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BCP coordinates policies and facilities in order to provide necessary services at a constrained
cost.
The BCP, continuing existing policy, encourages urban intensity annexed development.
Development on municipal services allows a much higher intensity of uses. Urban
development within the City lowers stress on agricultural properties to stop production and
reduces conflicts with rural residential development disrupting agricultural operations. There
is existing unannexed and undeveloped areas within the outer limits of the City. See the
attached map of vacant properties. The vacant areas depicted represent a small fraction of the
total City area. Some undeveloped land is also within the City limits. However, the total of
vacant and undeveloped land would be inadequate to accommodate all of the expected new
development over the planning period.
A large, if not the largest, portion of the existing buildings in the City have been constructed
within the past 30 years and have substantial service life remaining. The policies of the BCP
do encourage redevelopment of suitable sites. This is a long standing planning objective of
the City and is occurring, Examples of reinvestment in previously developed areas of the
community can be seen in the Downtown and N. 7th Avenue areas, and elsewhere. The
redevelopment is usually several times more intensive in use. However, due to the recent
construction of much of the community the financial viability of redeveloping in areas is
limited. Therefore, due to both limited vacant area and suitable areas for redevelopment
outward expansion of the City areas will be needed to meet expected growth.
The overall Planning Area for the BCP is about 70 square miles. The City has 21 square
miles within its legal boundaries. Although the Planning Area numbers seem much larger
they don’t represent as much expansion or potential for change as may appear. The attached
growth policy update context map shows the City and Planning Area boundaries. Also shown
on the map and legend are the size and number of parcels outside of the City and within the
Planning Area. Out of the approximately 49 square miles outside the City and within the
Planning Area there are only 148 parcels that are larger than 40 acres. Some of these are
already under a conservation easement or in public ownership. A number of these larger
parcels are physically constrained from development by floodplains, steep slopes, or other
limitations. In comparison, there are 3,949 parcels that are five acres or less. There are more
parcels of less than five acres than all other types of parcels combined. This demonstrates
that the Planning Area outside of the City limits is substantially transitioning to a non-
agricultural land use pattern.
Recognizing this reality, the future land use map (FLUM) in Chapter 3 does not attempt to
specify which parcels will develop to urban nature over the term of the plan. A larger copy of
the map is attached to this report. Rather, it depicts the City’s preference for land use at such
time as it changes from what land use it is today. Adoption of the future land use map does
not require development, annex property, or otherwise change existing conditions. For some
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parcels, the change may take many years more than the time horizon of the BCP. Should
owners want to continue to maintain current land uses the BCP does not require a change in
use.
The City’s encourages undeveloped lands to remain undeveloped until such time as they can
be annexed and developed at urban densities. Low density rural or suburban development
typically relies on onsite water and sewer which have negative impacts on the environment.
At such time as urban services become available, the process of redeveloping low density
rural or suburban development is usually controversial and expensive. Keeping land in
agricultural production provides land stewardship, food production, and maintenance of open
lands. The City has various policies to support a continuing and economically viable
agriculture industry in the area. The City works with Gallatin County to encourage persons
interested in development who are within the City’s utilities service area to annex prior to
development. Low density development creates difficulties in later providing for extensions
of municipal services.
The City has encouraged infill/redevelopment for many years. As shown on the attached
vacant property map, there is not a large quantity of vacant property within the City
boundaries. The physical reality is matching the policy. Therefore, substantial infill projects
are likely to include replacement of existing structures and redevelopment and further
development of existing buildings and sites.
Due to scale of the map, the printed map does not attempt to depict watercourses, wetlands,
or other site constraints on development. The expectation is that after adoption the map will
primarily be accessed and reviewed through the City’s Community Development
Webviewer. This online tool enables the user to overlay and display a wide variety of
information layers overlaid on an aerial photograph of the community and surrounding area.
The viewer will enable the user to see mapped watercourses and other data overlaid on the
FLUM.
The City’s adopted regulations and standards to protect natural features, historic areas, and
other issues of concern remain in effect.
In preparation of the growth policy, the City hired Economic Planning Systems to collect
background information and perform some trend analysis for people and the economy. Their
report is included as an attachment to this report. Trend analysis looks at past and present
circumstances and from that knowledge looks to the future. The report identified future
population, housing, and business growth likelihoods and what land base might be required
over the 20 year planning period.
The report final draft was received in early 2018 and relied on data from 2016 and earlier.
Such a delay between available data and completion of analysis is expected and is a result of
the time lag in collection and publication of necessary public data. Looking back at actual
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performance in 2017-2019, the City has been experiencing higher than projected housing and
business growth. The COVID pandemic and associated impacts as well as impacts of events
such as the large fires on the West Coast were not factored into analysis of past trends. This
is not a criticism of the work but an inherent limitation on any trend analysis since such
events did not occur during the period used for the base analysis. However, such events have
occurred. At least in the short term, there are indications of potential strong interest in people
relocating to the area which may affect future growth patterns and needs for land. It is
premature to reliably predict outcomes of these unusual events over the next years. The
impact of such unexpected events supports the approach to designate ultimate outcomes on
the FLUM map rather than tie too directly to projected development rates and patterns.
The FLUM does: guide annexation and municipal zoning decisions, show the City’s long
term expectations for property, and enable coordination with internal and external
governmental agencies. The FLUM does not: change existing zoning, annex property, or
require development before the landowner chooses.
Purpose 5. That residential areas provide healthy surroundings for family life;
Residential areas which provide healthy surroundings are protected in the plan by policies
requiring adequate mitigation of development impacts, provision of public and private
utilities, provision of parks and trails, protection of the natural environment, and a broad
view of community health. Substantially isolating residences from all services is not
considered supportive of healthy surroundings as it can increase health hazards, such as
asthma from poor air quality caused by excessive vehicle use. The BCP calls for adequate
development review and community maintenance to address and mitigate hazards. The City
uses several tools including building codes and permits, subdivision review, zoning, and
others to protect public health, safety, and welfare; including but not limited to providing
healthy surroundings for residential areas. A diverse range of housing opportunities is
encouraged and supported to meet the wide range of housing needs in the community.
Purpose 6. The growth of the community be commensurate with and promotive of the
efficient and economical use of public funds.
The BCP describes a compact future growth pattern which maximizes the value from
previous public expenditures and reduces future expenditures. Distance is one of the largest
impacts on cost of delivery of services. A compact and land efficient development pattern
provides benefits to many users from each installed unit of capacity. This applies both to
capital and operational costs.
As an example, compare a project now under the construction in the B-3 district called One
11 lofts located at Lamme Street and N. Willson Avenue which includes 54 homes on
approximately 0.5 acres of land. This project has approximately 363 linear feet of adjacent
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street and utility lines. A portion of the more typical residential area of the recently platted
Gran Cielo subdivision uses 7.92 acres and approximately 2,306 linear feet of adjacent street
and utility lines to service the same number of future homes. The growth policy and
municipal regulations enable both types of projects as a diversity of housing types is needed
to meet the diverse needs of a community. Coordination of greenfield and infill
development, appropriate development standards to ensure provision of adequate facilities
for all types of allowed development, and concurrence with adequacy of public utilities and
services maximizes public and private benefits.
The various topic plans and BCP seek to maximize the efficiency of transportation and
utility investments. This is done by encouraging a compact development pattern that supports
a multiple route, multi-modal transportation approach which spreads demand over diverse
travel networks and longer periods and provides travel alternatives which are less costly. All
of these approaches lessen and delay need to expand streets and other facilities. This reduces
both capital cost for installation and maintenance of expanded facilities. Maintaining the high
existing quality of life also supports this criterion by encouraging community reinvestment
and renewal which maintains a pleasant environment and constrains demand for public
services. See Appendix D for additional discussion on land consumption by urban, suburban,
and rural development.
APPENDIX A - COORDINATION WITH GALLATIN COUNTY AND OTHERS
The City works to coordinate land use planning with Gallatin County. The City reached out
to the Gallatin County Planning Office during the plan development process to seek input
and share information. There is not a shared planning board for the Bozeman Community
Plan area at this time. The City and Gallatin County do both participate in the Planning
Coordinating Committee (PCC). The PCC was established in 2016 to be a forum for
consideration of land use policy and other matters of shared concerns between its
participants.
The PCC recommended to the PCC member governing bodies a policy plan for the area
called the Triangle which is roughly between Bozeman, Belgrade, and Four Corners. This
plan completed development. All three jurisdictions have taken action to accept or adopt the
plan. The Triangle Community Plan is available on the County’s website.
The overall vision of the document is below. This vision correlates well with the themes,
goals, and map included in the Bozeman Community Plan that is the subject of this report.
“3.1 Triangle Plan Vision
Regional coordination creates and maintains a coherent land use pattern that supports the
needs of existing and future citizens and the desire to protect community character and
amenities. Cooperation between jurisdictions supports development patterns that do not
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compromise the ability of municipalities to grow in the future or expand necessary
infrastructure.
Belgrade, Bozeman and Gallatin County will coordinate land use in the Triangle to
achieve:
• Compact, contiguous development and infill to achieve an efficient use of land
and infrastructure, reducing sprawl and preserving open space, agricultural lands,
wildlife habitat, and water resources;
• Well-planned transportation systems, consistent with the overall growth
management vision, support the development of multi-modal and public
transportation networks;
• Community centers that have adequate transportation, utility, health, educational
and recreational facilities. Residential areas that provide healthy surroundings;
and
• Opportunities for agriculture, industry and business, while minimizing conflict
between adjacent land uses.”
Portions of the above text are included in the BCP, see page 37. The City also collaborates
with various agencies in preparing the various topic plans identified in Appendix B of the
BCP. Collaboration occurs through mutual aid agreements for emergency services, shared
services such as the Health Department and 911, and other formal and informal means. An
infrastructure plan as outlined in 76-1-601(4)(C), MCA is also included as Appendix E and
addresses coordination with other agencies.
Gallatin County and the City of Belgrade have been contacted at various points during the
development of this growth policy. Most recently, they have been provided links to all
documents elements and invited to offer comments and suggestions on the draft document.
APPENDIX B – NOTICING AND PUBLIC COMMENT
Public input and comment has been solicited since the beginning of the project. See Appendix
A for a description of methods and events. This appendix describes notice and comment during
the formal adoption process.
Notice of the July 21, 2020 Planning Board public hearing was published in the Legal Ads
section of the Bozeman Daily Chronicle on 07/05/2020, 07/12/2020 and 07/19/2020. The
notice of the July 28, 2020 Planning Board public hearing was published in the Legal Ads
section of the Bozeman Daily Chronicle on 07/19/2020 and 07/26/2020. A news item was also
published through the City’s website directing people to the new plan draft and review
schedule.
Public comment has been solicited in many forms throughout the public process from 2016-
2020. Multiple public hearings were held during development of the plan to consider drafts of
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the document. Each hearing was given public notice in excess of what is required by law.
Comments have come in through many means. Written comments submitted outside of public
events have been aggregated to the City’s Laserfiche electronic document archive. This made
them available to the Board and any other interested person throughout the planning process.
Comments were also received verbally at the many public meetings held by the Planning
Board. These comments are included in the recordings of each meeting. Comments were
considered as they came in as the Board developed the goals, objectives, future land use map,
and all other elements of the BCP.
At their June 16, 2020 public meeting, the Planning Board considered various edits and public
comments to date. At the conclusion of the meeting the Planning Board directed preparation
of a revised document draft for public hearing and recommendation to the City Commission.
A number of public comments were received this spring in connection with a privately initiated
growth policy map amendment. Those comments blended thoughts on the specific application
as well as the larger growth policy update. To ensure the public has its full opportunity to
participate in the development of this growth policy those comments were provided with the
packet for the July 21st public hearing. In addition, public comments were received regarding
the future land use map after the June 16th meeting. All written comments not previously
considered by the Planning Board were included in the packet for the July 21st public hearing.
Additional comments were received during the three public hearings conducted by the
Planning Board on the July 21, 2020 draft of the BCP. The Planning Board addressed all
comments prior to concluding their deliberations on August 10th.
As the City Commission began their deliberations a resolution of intent to amend the growth
policy was heard and passed on August 25, 2020. The notice of intent was advertised through
the City Commission agenda. The City Commission directed the City Manager to set hearing
dates and provide public notice for the public hearings before the City Commission.
Public hearings were set and advertised for October 6th and October 20, 2020. Notice was
provided through the Bozeman Daily Chronicle legal ads on 9/27/2020 and 10/04/2020,
publication of the scheduled hearing dates on the City’s website, and distribution of news posts
through social media and the City’s website.
Prior to the public hearings by the City Commission, the City staff conducted three public
meetings on September 16th, 23rd, and 30th to present the plan text, future land use map, and
answer questions. These meetings enabled the public to learn about the plan prior to the public
hearing process beginning. A recording of each meeting was also posted on the BCP project
website so people could review them at their convenience. The City staff also presented an
overview of the plan to the Inter-Neighborhood Council at their meeting on September 10,
2020 and encouraged the representatives to share the public meeting schedule and project
website with their members. The City identified those parcels where the FLUM materially
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changed during this process and where ready access to owner information was available. The
City mailed approximately 2,000 postcards to landowners affected by the FLUM changes
advising them of changes affecting their property and directing them to the project website
where maps and text were available to explain the changes.
Written public comments are archived in the City’s online Laserfiche archive system. Any
person with web access may review submitted comments. Comments are organized by year.
Links are provided here to the comments on the growth policy update submitted in 2018, 2019,
and 2020. As new comments are received they will be added to the 2020 folder. If the City
Commission review continues into 2021, the City Clerk with create a new file for that calendar
year.
APPENDIX C - REVIEWING STAFF
Applicant: City of Bozeman, PO Box 1230 Bozeman MT 59771
Report By: Chris Saunders, AICP, Community Development Manager
APPENDIX D – PROJECT BACKGROUND
The formal term in state law for a community’s comprehensive plan is ‘growth policy’. The
development of a growth policy is a primary responsibility of the Planning Board and is
directed by Sections 76-1-601 through 76-1-606, MCA. Bozeman has had a formal
comprehensive plan since 1958. Careful planning by individuals and small groups prior to that
time created the historic areas of the community. Since 1958, Bozeman has adopted six
comprehensive plans.
The growth policy sets broad policy standards and coordinates between many municipal
functions. It is the primary land use policy document for the community. A community has
broad latitude in the level of detail they wish to address in their growth policy. Certain subjects
are required to be addressed. As shown in illustration 3, Section 1 of this report, the growth
policy is a foundation for other municipal programs and actions such as zoning regulations.
The City Commission adopted Resolution 4112 on July 21, 2008. Resolution 4112 commits
the City to undertaking certain coordinated infrastructure planning with Gallatin County. This
is not a jointly adopted growth policy or topic plan but coordination occurs within individual
growth policies. The purpose of this planning is to enable the rational and functional expansion
of the City. This coordination manifests in many ways. Most recently the City and County
cooperated in the preparation of the Triangle Community Plan (TCP); a neighborhood plan
under the County’s and City of Belgrade’s growth policies which includes portions of the
Bozeman planning area. The TCP is to coordinate goals and policies between Gallatin County,
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City of Belgrade, and City of Bozeman in areas where respective interests overlap. The City
also conducts topic specific infrastructure planning such as for transportation and water. Topic
plans look at existing and future services areas and needs both within the existing City
boundaries and adjacent areas for expansion.
Since the adoption of the Bozeman Community Plan in 2009, Bozeman has grown in both
area and population. The plan held up well under the strain but needed to be updated to
address changing conditions. The City Commission directed the Planning Board and Staff to
prepare an update in 2016. The process began with data collection and trend projections
summarized in the 2018 report by Economic Planning Systems.
The Planning Board conducted many public meetings and outreach events to garner input
from the community. Appendix A of the growth policy describes the various outreach
approaches to date. Additional outreach events will be added to the appendix to summarize
all the outreach completed through the adoption process. Various elements of the document
were reviewed by the public. A compiled complete draft document was made available in
December 2019. A public hearing was held by the Planning Board on December 17, 2019.
Another was scheduled for March 17, 2019 but was cancelled due to COVID restrictions.
The proposed plan had been posted to the project website and advertised.
After the plan was initially posted online in December 2019, numerous public meetings were
held by the Planning Board during this time to discuss document revisions. These meetings
were held electronically due to restrictions on in person public meetings. The recordings of
these meetings, agendas and all materials were and are available to the public through the
City’s website and other means. The Planning Board accepted public comment and reviewed
the draft document. The Planning Board directed a number of changes to the text and future
land use map. On June 16, 2020 the Planning Board directed changes to the document and
that a public hearing be advertised for consideration of adoption of the revised draft with the
intent to complete their review and send a recommendation to the City Commission.
The directed changes were completed, a new draft published, and noticed to the public. After
public hearings on July 21, July 28, and August 10, 2020, the Planning Board sent their
recommendation to the City Commission. The Resolution transmitting the recommendation
is attached to this report as is the draft document.
To grow or not to grow? If so, how?
These questions are frequently asked during discussion about land use planning and
development. As shown on Illustration 1, Section 1 of this report, Bozeman has experienced
growth over the past 50 years with only 1 decline. This same pattern is largely seen in
Gallatin County as a whole.
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Many factors have influenced the decisions of individuals and businesses to move to
Bozeman and the Gallatin Valley. These factors include but are not limited to: nearby
extensive outdoor recreation opportunities, Montana State University, people who left the
area for careers returning, changing technology enabling remote work, and people becoming
familiar with the area during visits to Yellowstone National Park. Developing factors that
appear to be increasing interest in the local area include climate change, increasing economic
opportunities in the local area with technology and other sector growth, and recently the
COVID-19 pandemic.
Separate from increases in the number of people, other changes have caused increases in
number of homes. As family and household sizes have decreased over time additional houses
are required to serve the same population. For example, in 1970, the average household size
in Bozeman was 3.25 people; in 2010, the US Census found that 1/3 of all households in
Bozeman were occupied by one individual and the community had an overall average of 2.2
persons per household. The impact of this one change can be seen looking at the number of
homes needed to house 10,000 people. In 1970, 3,077 homes would be needed. In 2010,
4,545 homes would be needed. The change in household size means that for the same
population the number of homes must increase by 47.8%. That increased number of homes
requires more streets, water and sewer pipes, and similar expanded municipal and private
facilities. The cost of services per person correspondingly increases. Should this trend
reverse, the City could see large population increases without construction of additional
homes.
Therefore, Bozeman has expanded in population and land area from in-migration, change in
the demographic makeup of the community, new births, and annexation of new areas to serve
new or existing residents. Community change is dynamic and affected by many forces. It is
also inevitable. Even if population stayed the same, as shown above, there are forces that
make outward and inward changes in a community.
Context of the growth question
Consideration of Bozeman’s growth cannot be separated from the larger context of the
Gallatin Valley. Bozeman has many identities. When asked what people think of when they
describe Bozeman answers ranged from the legal geographic boundaries, postal zip codes,
what they could see from a viewing point, and the scope of its total economic area of
influence. As shown in Section 1, Map 4, there are other communities in the area who also
plan for their futures. Gallatin County is in the process of updating their growth policy. The
City of Belgrade recently completed a growth policy update. All three jurisdictions recently
participated in preparing the Triangle Community Plan.
The Planning Area for the BCP is approximately 70 square miles. Most of that area lies
outside of the existing municipal limits. However, it is not free from development pressure or
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change. As shown in Section 1, Map 3, much of the land within the Planning Area and
outside of the City has already been subdivided and developed to some degree. The
following excerpt from the map shows the southern portion of the Planning Area. The
colored areas are divided into parcels of sizes as classified in the map legend.
As shown on the legend, only 8% of all the parcels in the nearly 49 square miles outside of
the City limits are larger than 20 acres. Twenty acres is the minimum area generally
considered eligible to be classified as agricultural property. This parcel pattern reflects many
decades of land use decisions by private property owners as well as various governmental
agencies. A larger version of the map including designation of the use by structures on each
parcel is attached to this report.
The Planning Area outside of the City’s legal limits remains under the final authority of
Gallatin County. The County and City do not have a shared planning board or regulations at
this time. As described in Appendix A of this report and Chapter 2, Theme 7 of the growth
policy, the City does work with Gallatin County on land use planning issues. However,
should a land owner outside of the City ask to change zoning or subdivide land the County
Commission has the final decision. Areas that people often describe as being in Bozeman
such as the Woodland Park and Middle Creek developments along Huffine Lane are outside
of the City limits and were approved by the County.
Regardless of how the future land use map designates property, until the property is annexed
the map is advisory and development may occur contrary to the future land uses shown on
the FLUM.
How does the City enable growth?
For new people and businesses to come and establish in the community the City must be able
to provide land area, utility services, and other functions. Beginning at the founding of the
City and continuing to today, it has been the policy of the City to welcome new residents and
businesses. It hasn’t always been smooth or easy to do so.
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It has also been the long standing policy of the City to strive to balance the interests of new
and existing residents. Therefore, the City has established standards and procedures to strive
to ensure that new development proportionately contributes to the services and facilities
needed to support new development. The following examples identify significant policies but
it is not an exhaustive list.
Annexation: Annexation is almost entirely initiated by the landowner. The City has limited
ability to start an annexation process. Annexation is often motivated by a desire to develop
property or to address a failed on-site septic system. At the time of annexation, land owners
commit to provide or do provide easements for major roadways, and to follow the City’s land
development standards requiring the landowner to provide needed infrastructure for
development of the land.
Water Rights: All water in the state not reserved to the Federal Government or Tribal
Government is controlled by the State of Montana. No one can use water without the State’s
permission. Such permission is called a water right. When new development occurs, the City
requires that new development to provide either water rights to the City or to pay an equal
amount of money so the City can acquire water rights adequate to serve the new
development. Existing water users are not required to pay for water rights for new
development.
Impact Fees: Impact fees are costs charged to new development to construct fire, water,
sewer, and transportation facilities to support new development. There are strict rules to
ensure that the impact fees don’t fix existing problems. Impact fees enable the City to more
closely keep up with water and sewer treatment capacity and other infrastructure needed for
new development to be functional and safe.
Utility planning: The City conducts long range planning for water, sewer, transportation,
parks, and other services. This planning work examines the needs for existing users and
future users. This enables the City to construct facilities before big bottlenecks occur. Since a
water line can have a service life of at least 70 years, sizing them correctly is a significant
concern to avoid future service limits and failures. Knowing what services are needed
enables the City to work effectively and cost efficiently to serve existing and future users.
Recent expansion and upgrades at the City’s water and sewer treatment facilities were
required both for maintaining legal compliance with treatment standards for existing users
and to enable new users.
Regulations: The City adopts standards for development to correlate timing of new
development with the services needed to serve it. This protects the public health and safety.
The regulations also provide predictability in decision making to both existing and new
members of the community. Predictability is a very important element in the complex and
difficult public and private decisions relating to growth.
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What if the City did not encourage growth within its borders?
The City is not required to grow in area or population. There is undeveloped area within the
current City limits as shown on the attached vacant land map. The undeveloped area would
eventually fill in with development. The City could choose to not annex new property. The
City could stop acquiring water rights, stop expanding treatment capacity for water or sewer,
or could strictly limit development opportunities through regulations on development
intensity. All of these would result sooner or later in many fewer homes and businesses than
would likely otherwise be present if the City encouraged growth. There is additional capacity
presently in the City’s systems due to planned “working room” to account for the fact that
expansion of capacity often comes in large increments and therefore some excess capacity is
needed at any given time to meet needs while the next increment of expansion is designed
and constructed. Such capacity could be used up and not replaced.
A key sub-question in this subject is whether lack of capacity in municipal land area or
systems would cause people to stop seeking to come to the Gallatin Valley. The residents of
the City of Bozeman have for many decades been between 45-50% of the total county
population. Since such a large fraction of the county population has chosen to locate outside
of the city limits it is highly likely that growth would continue but would locate within the
unincorporated areas or other municipalities. The factors identified above that draw people to
the area would be unlikely to be changed by a City decision to restrict development.
Therefore, the character of the valley would continue to change but without material
influence from the City.
As the population and development of the Gallatin Valley has occurred the degree of
interdependence has increased. As shown in this image from the US Census Bureau
application OnTheMap, the economy relies substantially on persons living outside of the city
to work at jobs located in the city. Data from 2017, the most recent available, shows a total of
33,879 jobs in the City. Of that number only 13,667 were serviced by City residents. The
number of City residents leaving the City for employment was 9,874 and the number of non-
City residents coming into the City for work was 20,212.
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A key outcome of this situation is that tens of thousands of people are commuting every day
into the City and consuming street capacity, police and fire services, and other municipal
services. However, the property taxes they pay on their homes does not come to the City to
offset those demands for service.
On a national level, the supply of housing is not keeping up with demand for housing. On a
local level, this issue was examined by the 2019 Housing Needs Assessment (HNA) for the
City. A similar effort is being conducted at this time by Gallatin County for areas outside of
the City. The HNA identified a deficiency of available housing as a strong contributor to
housing price escalation in the area. Housing prices, both nationally and locally, have
increased substantially faster than incomes. Housing scarcity is a substantial concern and
impacts the ability of businesses to hire workers. As local unemployment has been low for
many years, attraction of new employees is dependent on the availability of additional
housing in the area.
As discussed above, the majority of the Planning Area is outside of the City limits. The City
of Bozeman and Gallatin County have worked together to encourage annexation and
development within the City limits. Development within the City is more land efficient than
rural or suburban development in unannexed areas. As discussed briefly under Criterion 6 in
Section 3 of this report, urban intensity development whether more intensive apartment style
development or more typical medium density residential is much more land efficient than
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rural/suburban development. Comparing suburban development with an average density of
one home per 1.25 acres and rural at one home per 5.5 acres to the more intensive apartment
style development of One 11 Lamme; the suburban development consumes 135 times the
amount of land and the rural consumes 594 times the amount of land per home. Development
within the City also provides for a wide range of housing types to meet a wide range of
housing needs. Development within the City lessens likelihood of conversion of agricultural
and open spaces to other uses but does convert uses on some land with annexation.
Municipal development enables use of highly effective centralized water and sewer systems.
Such centralized systems are more protective of water quality both at the surface and
underground. Areas such as the Helena Valley in Lewis and Clark County are experiencing
problems with ground water contamination resulting from significant use of on-site water and
sewer systems.
Gallatin County has been a good partner in encouraging potential development to annex and
develop within the City. However, if the City is unable or unwilling to annex and provide
services the County will not prohibit development on that parcel. As shown on the context
map, there has been considerable rural and suburban development within the Planning Area.
If so, how?
In many planning efforts and discussions over the years, the Planning Board and City
Commission have considered the various elements of the question of to grow or not grow and
the consequences of either approach. After considering this question, they have concluded
that having growth within the physical boundaries of Bozeman results in better outcomes
than not. Therefore, the BCP approaches growth as something that overall is positive but
recognizes that it does not come without drawbacks and that the community will change over
time.
The City has adopted land development regulations and policies to reasonably mitigate
negative impacts. These have been adopted to address the question of “If so, how.” Those
regulations can do many things to ensure adequate physical facilities and a visually appealing
and functional development of sites. They support expansion of employment and tax base for
the community. They ensure provision of new parks and walking trails, keep the water
flowing if there is a home fire to be put out, and provide a framework within which people
may pursue dreams of their own homes and businesses.
For all they can accomplish, there are some things they cannot do. They cannot make there
be fewer people on a favorite walking trail, make certain you see people you know as you
walk down the street, or control things that happen outside of the City limits. They don’t set
school service boundaries; or change the floodplain or water quality or wetland standards
established by federal and state agencies. They can’t prevent your mortage lender or landlord
from being sneaky or deceitful or assure that buying a house will work out well for you. They
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can’t change the flight path of aircraft headed to the Bozeman Yellowstone International
Airport. They cannot assure you of a neighbor you want to have. They don’t change any state
or federal policy. They do not prevent change or guarantee that change will happen in the
way any particular person prefers.
FISCAL EFFECTS
No funds have been budgeted at this time for implementation of the plan. Creation and review of
the new growth policy was funded by the City Commission from long range planning funds over
several fiscal years. Expenditures for the growth policy are within the budgeted funds.
ATTACHMENTS
The full application and file of record can be viewed at the Community Development Department
at 20 E. Olive Street, Bozeman, MT 59715.
Planning Board Resolution 20-1
Planning Board Resolution 20-1 Appendix A
Table showing where each required element has been met in the growth policy
Vacant property map
City limits map as of 9/28/2020
Proposed growth policy main text
Proposed growth policy supporting appendices
Proposed future land use map
Growth policy update context map
2018 report by Economic Planning Systems
496
DocuSign Envelope ID: 3DA56A9C-82F1-492A-81FE-323416463EEC522^»^*v^'^^'^0:^^0*<••»ff01»IVco.PLANNING BOARD RESOLUTION NO. 20-1RESOLUTION OF THE CITY OF BOZEMAN PLANNING BOARD RECOMMENDINGADOPTION OF THE BOZEMAN COMMUNITY PLAN, AS REQUIRED BY 76-1-603MONTANA CODE ANNOTATED (M.C.A.)WHEREAS, the City of Bozeman Planning Board (Planning Board) has been created byResolution of the Bozeman City Commission as provided for in Title 76-1-101, M.C.A.; andWHEREAS, Section 76-1-106(1), M.C.A. states that the Planning Board is responsible forpreparing growth policies, if requested by the governing body; andWHEREAS, the Bozeman City Commission adopted Resolution 4112 on July 21, 2008 statingtheir intent to develop a growth policy which would contain, in addition to the mandatory elements, thoseWHEREAS, the Bozeman City Commission directed the Planning Board and the staff of the CityofBozeman's Department of Community Development to prepare an update to the Bozeman CommunityPlan originally adopted on June 1, 2009 by Resolution 4163; andWHEREAS, the Planning Board initiated the preparation of an update as requested; andWHEREAS, the Planning Board undertook a variety of public outreach events and practices toencourage public input and participation in the drafting of the update; andWHEREAS, the Planning Board began the preparation of an update to the adopted growth policyand all related documents and materials were properly submitted and reviewed, and all public hearingsand public meetings were advertised in accordance with the procedures set forth in Section 76-1-602,M.C.A.; andWHEREAS, the Planning Board held public hearings on July 21, July 28, and August 10, 2020, toreceive and review all written and oral testimony on the draft update of the growth policy; andWHEREAS, Staff presented a summary description of the updated growth policy and answeredquestions for the Planning Board after which the public was invited to give testimony; andPlanning Board Resolution No. 20-1 Recommending Adoption of A Growth PolicyPage 1 of 2497
DocuSign Envelope ID: 3DA56A9C-82F1-492A-81FE-323416463EECWHEREAS, numerous written comments were provided to the Planning Board before and duringthe public hearing, and verbal comments were received during the public hearings, with comments beingsummarized or included in the minutes and other record of the public hearings; andWHEREAS, the Planning Board considered all oral and written comments they had receivedduring the public comment period at their public hearings on July 21, July 28, and August 10,2020; andWHEREAS, the Planning Board closed the public hearing on August 10,2020; andWHEREAS, the Planning Board discussed the issues raised in the public comment as well as itemsof concern to the Planning Board and the requirements of law; andWHEREAS, the Planning Board identified and directed changes to be made to the text and mapsto better reflect the purpose and intent of the Board and in response to questions or comment provided bythe public; andWHEREAS, a motion was made to recommend approval of the growth policy on July 21st, 2020with changes as directed by the Plamiing Board and modifications to the recommended text and map wereapproved on July 28 and August 10, 2020;andWHEREAS, a revised draft incorporating all the directed changes will be prepared and madeavailable for public review prior to the public meeting required to be conducted by the City Commissionprior to any action to adopt a revised growth policy;NOW, THEREFORE, BE IT RESOLVED, that the City ofBozeman Planning Board, on a voteof 8 to 1, recommends adoption by the Bozeman City Commission of the draft Bozeman CommunityPlan dated July 21, 2020 with amendments as identified by the Planning Board.DATED THIS 17th DAY OF AUGUST 2020, Resolution No. 20-1DocuSigned by:CM^^Q.•"69?6c?BEeFF1»7.Chris Saunders, AICPCommunity Development ManagerDept. of Community Development\-\N^. \Henry Happel, PresidentCity ofBozeman Plannifig BoardPlanning Board Resolution No. 20-1 Recommending Adoption of A Growth PolicyPage 2 of 2498
Appendix A – Planning Board Motion Summary on July 21, 2020 Draft
Bozeman Community Plan. Resolution No. 5132.
July 21, 2020 Planning Board meeting changes to the text
1. Page 42. Residential Mixed Use.
This category promotes neighborhoods substantially dominated by housing, yet
integrated with small-scale commercial and civic uses. The housing can include single-
attached and small single-detached dwellings, apartments, and live-work units.
Residences should be included on the upper floors of buildings with ground floor
commercial uses. If buildings include ground floor commercial uses, residences should
be located on upper floors. Variation in building mass, height, and other design
characteristics should contribute to a complete and interesting streetscape.
2. Page F-2. Revise Infill definition. Infll. The development or redevelopment of vacant,
abandoned, or under-utilized properties within or surrounded by developed areas of the City,
and where water, sewer, streets, and fire protection have already been developed and are
provided. Infll is located within land subdivided for at least 35 years.
3. Appendix. Page F-2.
Neighborhood. An area of Bozeman with characteristics that distinguish it from other
areas and that may include distinct economic characteristics, housing types, schools, or
boundaries defined by physical barriers, such as major highways and railroads or natural
features, such as watercourses or ridges. A neighborhood is often characterized by
residents sharing a common identity focused around a school, park, business center, or
other feature. As a distinct and identifiable area, often with its own name, neighborhoods
are recognized as fostering community spirit and a sense of place, factors recognized as
important in community planning.
Neighborhood. An area of Bozeman with characteristics that distinguish it from other
areas and that may include distinct economic characteristics, housing types, schools, or
boundaries defined by physical barriers, such as major highways and railroads or natural
features, such as watercourses or ridges. A neighborhood is often characterized by
residents sharing a common identity focused around a school, park, business center, or
other feature. As a distinct and identifiable area, often with its own name, neighborhoods
are recognized as fostering community spirit and a sense of place, factors recognized as
important in community planning.
4. Page 4. “Appendix B references the City’s key infrastructure and special topic plans, with
descriptions of, and links to each plan document. Included are future and existing plans for
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transportation, storm water, wastewater, parks and open lands, public safety, economic
development, housing, neighborhood plans, and other topics.”
5. Page F-3. “Special Topic Plan. A formal plan prepared for a specific physical resource or
function or area of the City which examines the current state, future needs, and recommended
means of meeting identified future needs. Examples of topic plans are the Wastewater
Facility Plan, Affordable Housing Action Plan, various Neighborhood Plans, and the
Transportation Plan.”
6. Page 22. “DCD-2.4 Evaluate revisions to maximum building height limits in multi-
household, commercial, industrial, and mixed-use all zoning districts to account for revised
contemporary building methods and building code changes., and the effect of incremental
height changes on meeting goals of this Plan.”
7. Page 22. Add “DCD-2.9 Evaluate increasing the number of stories allowed in centers of
employment and activity while also directing height transitions down to adjacent
neighborhoods.”
8. Page 19. Add N-4.3: Revise Design Guidelines within the Conservation Overlay District to
distinguish Downtown from the residential neighborhoods both north and south of
Downtown.
9. Page 31. Add the Downtown Improvement Plan to the list of “Other Relevant Plans”.
10. Page F-1. Downtown definition. “Downtown. The area subject to the Downtown Bozeman
Improvement Plan and generally bounded by Broadway Avenue, Lamme Street, 5th Avenue,
and Olive Street. An area of mixed uses, Downtown is generally characterized by historic
architecture and is principally commercial in character.” “Downtown. The area subject to the
Downtown Bozeman Improvement Plan bound by the B-3 zoning district which generally
extends to Broadway Avenue, Villard Street, 5th Avenue, and Olive Street. Downtown is a
mixed-use district but primarily commercial in function and character. Downtown, and
particularly Main Street, is distinguished by its historic architecture but also includes notable
recent development especially in the areas outside of the historic core.”
11. Page 18. Goal N-1.3. “Revise the zoning map to lessen areas exclusively zoned for single-
type housing.”
12. Page 41. Urban Neighborhood. Staff to add language stating that the R-1 district is not
eliminated.
13. Page 19. Goal N-4.1. “Continue to recognize and honor the unique history and buildings that
contribute to Bozeman’s sense of place through programs, and policy led by both City and
community efforts civic action.”
14. Page F-1. Add Commercial Center definition. Commercial Center. A mix of commercial
land uses typically serving more than one residential neighborhood, usually a subarea of the
city, with services and retail goods. This term also includes small commercial areas
500
providing limited retail goods and services, such as groceries and dry cleaning for nearby
residential customers.
15. Page 50. Request to update Zone Map in a timely manner to accurately reflect the revised
FLUM. Revise Short Term Action List No. 11.n, “Revise the zoning map in a timely manner
to harmonize…”
16. Page 1, 5th paragraph, 3rd sentence. “Its measure of success is continuation of the Bozeman
tradition—flourishing, safe, and healthy—and a vibrant place to residelive, work, build a
business, and raise a family.”
17. Page 7. Transportation. “Bozeman residents have access to a range of transportation options,
including: an extensive sidewalk and trail system,; the six citywide routes offered by
Streamline Bus service,; Skyline Bus service to Big Sky,; Galavan transportation service for
seniors and disabled individuals people with disabilities,; taxi service and rideshare,; and the
bike network, which consists of 18 miles of bike routes, 33 miles of bike lanes, and 23 miles
of shared-use paths.”
18. Page 10. Principles Applied in this Plan. Move up the 6th bullet to the 1st bullet and edit as
follows: “The City intends to create a healthy, safe, resilient, and sustainable community by
incorporating a holistic approach to the design, construction, and operation of buildings,
neighborhoods, and the City as a whole. Developments should contribute to these goals and
be integrated into their neighborhood and the larger community.”
19. Page 16. Housing Affordability. “Housing affordability is a critical issue for the community
and has been an ongoing concern since it was identified as an issue in the 1972 community
master plan. Housing instability and homelessness are serious public health issues and are
exacerbated by the rapid rise in housing prices and the recent economic stress caused by the
Covid-19 pandemic.”
The positive attributes that make Bozeman a desirable place to live contributed to ever-
increasing housing demand. The sale price of homes has more than fully recovered from the
2008 recession for all housing types. The median sale price of homes, including single-
households, townhomes and condominiums, has increased 75% since 2012. This is an
average increase of almost 10% per year.”
20. Page 16. Theme 2.
“Our City desires to be diverse, healthy, and inclusive, defined by our vibrant neighborhoods,
quality housing, walkability, excellent schools, numerous parks and trails, and thriving areas
of commerce.”
21. Page 26. Edit EPO-1.3. Incorporate unique and inclusive recreational and artistic elements
into parks.
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22. Page 26. Edit EPO-1.4. Research and implement multi-use features within parks to promote
increased use and visitation. Ensure Wherever possible, parks are connected to multi-modal
transportation options and accessible for people with disabilities.
23. Page 28. Theme 5. Importance, second sentence, “Transportation systems impact the
following: 1) livability (in terms of traffic congestion, but also noise, pollution, physical
activity, accessibility, safety, and aesthetics); 2) affordability (after housing, transportation is
the second largest expense for most households); and 3) sustainability (transportation
accounted for more than one third of Bozeman’s 2016 greenhouse gas emissions).”
24. Page 50. Short-Term Action Plan. Add No. 13, Retain firm that specializes in form-based
development codes to evaluate the city’s UDC, especially with regard to completing the
transition to a form-based code and simplification so that it can be understood by the general
public and consistently applied by planning staff.
25. Page 19. Revise Goal N-2.5. “Ensure that new development includes opportunities for urban
agriculture, including rooftop and home gardens, community gardens, and or urban farms.”
26. Page 18. Revise Goal N-1.1. “Promote housing diversity, including missing middle housing.”
July 28, 2020 Planning Board meeting changes
No text changes made at the July 28th meeting. Changes to the Future Land Use Map
were made.
August 10, 2020 Planning Board meeting changes to the text
27. Page 14. Add the following text below resiliency text.
“During the development of the 2020 Community Plan, and at the time of publication, the
world has been beset by the COVID Pandemic and the subsequent COVID Financial Crisis.
The impacts of COVID reach into the trillions of dollars worldwide.
Southwest Montana has fared better with COVID than most communities on a global scale.
At the time of publication, it appears that this reduced initial COVID impact is creating
significant in-migration of citizens to Bozeman and its environs.
Mitigation of the impacts of both COVID and an influx of new citizens to our community
will require unprecedented resilience, agility, and outside-the-box thinking, by all
participants, the development community, including the City of Bozeman Commission and
staff at all stages of the development process.”
28. Page 12. Housing Affordability. Second paragraph. “According to the most recent Bozeman
Housing Needs Assessment, an estimated…”
502
29. Page 12. Housing Affordability. Third paragraph.
“Bozeman has taken the issue of housing seriously. It developed a housing needs assessment
in 2019, hired a housing coordinator, and released the Community Housing Action Plan
(CHAP) in October 2019. The CHAP was updated in April 2020.
At the time of publication, the availability of affordable housing, whether for rent or for
purchase, is one of Bozeman’s most serious problems, as demonstrated by both the 2018 EPS
Study and the CHAP.
Mitigating this shortage is a top priority of the Bozeman City Commission, the Planning
Board, and the Community Development Department, in conjunction with local and regional
authorities. The three top action items in the Community Affordable Housing Action Plan
are:
• Ensuring community housing serves the full range of incomes without losing sight of
safety net programs for extremely low income and homeless families. This includes
safety net rentals below 30% AMI (about $20,000 per year), additional resident and
employee rentals up to 80% AMI (about $55,000 per year), and ownership housing up to
150% AMI (about $104,000 per year).
• Producing community housing at a rate that exceeds, or at least matches, job growth so
that new employees can find homes.
• Striving to produce community housing at a rate that matches the spectrum of
community housing needs, while also preserving what we have through a target of no net
loss of existing community housing stock below 80% AMI.
The CHAP objectives include: i.) ensuring community housing serves the full range of
incomes without losing sight of safety net programs for extremely low income and homeless
families; ii.) producing community housing at a rate that exceeds or at least matches job
growth; and iii.) striving to produce community housing at a rate that matches the spectrum
of community housing needs.
The CHAP identifies 19 priority action strategies to be evaluated and, where appropriate,
utilized over the next five years in an effort to accomplish the objectives. Because housing,
including affordability, is the subject of the detailed CHAP, this Plan does not address
housing affordability issues in detail. For additional, up-to-date detail see Community
Affordable Housing Advisory Board (CAHAB) and the Community Housing Action Plan.”
30. Page 19. Add N-3.8, “Promote the development of “Missing Middle” housing (e.g. side by
side or stacked duplex, triplex, live-work, cottage housing, group living, row houses,
townhouses, live work, etc.), as one of the most critical components of affordable housing.”
31. Page 16. Theme 2. Add the following text to bottom of page:
503
“The need for a path to the emergence of small-scale neighborhood commercial development
and its ability to bring pedestrian access to coffee shops, groceries, and other daily
experiences, and related employment opportunities, is a critical part of Bozeman’s municipal
maturation.
Such a path is dependent on sufficient population density in such neighborhoods to make
neighborhood commercial viable. Typically, this viability cannot be achieved co-emergently
with construction of neighborhood housing—for this reason other subsidy approaches must
be developed and deployed to make co-emergence possible.”
32. Page 18. Replace Goal N-2.3 with “Investigate and encourage development of commerce
concurrent with, or soon after, residential development. Actions, staff, and budgetary
resources relating to neighborhood commercial development should be given a high
priority.”
## End ##
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Page 1 of 4
Statutory Compliance Tracking Table July 13, 2020
TITLE 76. LAND RESOURCES AND USE
CHAPTER 1. PLANNING BOARDS
Part 6. Growth Policy
76-1-601. Growth policy -- contents.
Required or Authorized Content Response or Where Information is
Located
(1) A growth policy may cover all or part of the jurisdictional area. Covers entire area
(2) The extent to which a growth policy addresses the elements listed
in subsection (3) is at the full discretion of the governing body.
(3) A growth policy must include:
(a) community goals and objectives; Ch. 2 - Themes
(b) maps and text describing an inventory of the existing
characteristics and features of the jurisdictional area, including:
Appendix C – Inventory Report
(i) land uses; Ch. 3 – Future Land Use
(ii) population; Appendix C – Inventory Report
(iii) housing needs; Appendix C – Inventory Report
(iv) economic conditions; Appendix C – Inventory Report
(v) local services; Appendix B – Infrastructure Plans
(vi) public facilities; Appendix B – Infrastructure Plans
(vii) natural resources; Appendix C – Inventory Report
(viii) sand and gravel resources; and Appendix C – Inventory Report
(ix) other characteristics and features proposed by the planning
board and adopted by the governing bodies;
No other items included
(c) projected trends for the life of the growth policy for each of
the following elements:
Appendix D – Projections report
(i) land use; Ch. 3 – Future Land Use
(ii) population; Appendix D – Projections report
(iii) housing needs; Appendix D – Projections report
(iv) economic conditions; Appendix D – Projections report
(v) local services; Appendix B and D – Infrastructure plans
(vi) natural resources; and Appendix D – Projections Report
(vii) other elements proposed by the planning board and
adopted by the governing bodies;
No other items included
(d) a description of policies, regulations, and other measures to be
implemented in order to achieve the goals and objectives
Ch. 4 - Implementation
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established pursuant to subsection (3)(a)[community goals and
objectives];
(e) a strategy for development, maintenance, and replacement of
public infrastructure, including drinking water systems, wastewater
treatment facilities, sewer systems, solid waste facilities, fire
protection facilities, roads, and bridges;
Appendix B – Infrastructure Plan
(f) an implementation strategy that includes: Ch. 4 - Implementation
(i) a timetable for implementing the growth policy; Ch. 4 - Implementation
(ii) a list of conditions that will lead to a revision of the growth
policy; and
Ch. 5 – Amendments and Review
(iii) a timetable for reviewing the growth policy at least once
every 5 years and revising the policy if necessary;
Ch. 5 – Amendments and Review
(g) a statement of how the governing bodies will coordinate and
cooperate with other jurisdictions that explains:
Chapter 2, Theme 7 and Appendix B
(i) if a governing body is a city or town, how the governing body
will coordinate and cooperate with the county in which the city
or town is located on matters related to the growth policy;
Chapter 2, Theme 7 and Appendix B
(ii) if a governing body is a county, how the governing body will
coordinate and cooperate with cities and towns located within
the county's boundaries on matters related to the growth policy;
NA
(h) a statement explaining how the governing bodies will: Ch. 5 – Amendments and Review
(i) define the criteria in 76-3-608(3)(a) [subdivision and platting act
primary review criteria] ; and
Ch. 5 – Amendments and Review
(ii) evaluate and make decisions regarding proposed subdivisions
with respect to the criteria in 76-3-608(3)(a);
Ch. 5 – Amendments and Review
(i) a statement explaining how public hearings regarding
proposed subdivisions will be conducted; and
Ch. 5 – Amendments and Review
(j) an evaluation of the potential for fire and wildland fire in the
jurisdictional area, including whether or not there is a need to:
Gallatin Hazard plan
(i) delineate the wildland-urban interface; and
(ii) adopt regulations requiring:
(A) defensible space around structures;
(B) adequate ingress and egress to and from structures and
developments to facilitate fire suppression activities; and
(C) adequate water supply for fire protection.
(4) A growth policy may:
(a) include one or more neighborhood plans. A neighborhood plan
must be consistent with the growth policy.
Optional – Not done with this plan.
Existing neighborhood plans are not
altered but continue in current status.
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(b) establish minimum criteria defining the jurisdictional area for a
neighborhood plan;
Optional - Not done
(c) establish an infrastructure plan that, at a minimum, includes: Appendix E – Infrastructure Plan
(i) projections, in maps and text, of the jurisdiction's growth in
population and number of residential, commercial, and industrial
units over the next 20 years;
Appendix D – Projections report,
Appendix E
(ii) for a city, a determination regarding if and how much of the
city's growth is likely to take place outside of the city's existing
jurisdictional area over the next 20 years and a plan of how the
city will coordinate infrastructure planning with the county or
counties where growth is likely to take place;
Appendix B, D, and E
(iii) for a county, a plan of how the county will coordinate
infrastructure planning with each of the cities that project growth
outside of city boundaries and into the county's jurisdictional area
over the next 20 years;
Not applicable
(iv) for cities, a land use map showing where projected growth
will be guided and at what densities within city boundaries;
Ch. 3 – Future Land Use,
Appendix E– Infrastructure Plan
(v) for cities and counties, a land use map that designates
infrastructure planning areas adjacent to cities showing where
projected growth will be guided and at what densities;
Ch. 3 – Future Land Use,
Appendix E– Infrastructure Plan
(vi) using maps and text, a description of existing and future
public facilities necessary to efficiently serve projected
development and densities within infrastructure planning areas,
including, whenever feasible, extending interconnected municipal
street networks, sidewalks, trail systems, public transit facilities,
and other municipal public facilities throughout the infrastructure
planning area. For the purposes of this subsection (4)(c)(vi), public
facilities include but are not limited to drinking water treatment
and distribution facilities, sewer systems, wastewater treatment
facilities, solid waste disposal facilities, parks and open space,
schools, public access areas, roads, highways, bridges, and
facilities for fire protection, law enforcement, and emergency
services;
Appendix B – Infrastructure Plans
Appendix E– Infrastructure Plan
(vii) a description of proposed land use management techniques
and incentives that will be adopted to promote development
within cities and in an infrastructure planning area, including land
use management techniques and incentives that address issues of
housing affordability;
Appendix B – infrastructure Plans, cross
references to main document,
Appendix E – Infrastructure Plan
(viii) a description of how and where projected development
inside municipal boundaries for cities and inside designated joint
infrastructure planning areas for cities and counties could
adversely impact:
Appendix E – Infrastructure Plan
(A) threatened or endangered wildlife and critical wildlife
habitat and corridors;
Appendix E – Infrastructure Plan
(B) water available to agricultural water users and facilities; Appendix E – Infrastructure Plan
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(C) the ability of public facilities, including schools, to safely
and efficiently service current residents and future growth;
Appendix B – Infrastructure Plans,
Appendix E – Infrastructure Plan
(D) a local government's ability to provide adequate local
services, including but not limited to emergency, fire, and
police protection;
Appendix B – Infrastructure Plans,
Appendix E – Infrastructure Plan
(E) the safety of people and property due to threats to
public health and safety, including but not limited to wildfire,
flooding, erosion, water pollution, hazardous wildlife
interactions, and traffic hazards;
Appendix B – Infrastructure Plans, Joint
Hazard Plan, Appendix E – Infrastructure
Plan
(F) natural resources, including but not limited to forest
lands, mineral resources, sand and gravel resources, streams,
rivers, lakes, wetlands, and ground water; and
Appendix E – Infrastructure Plan
G) agricultural lands and agricultural production; and Appendix E – Infrastructure Plan
(ix) a description of measures, including land use management
techniques and incentives, that will be adopted to avoid,
significantly reduce, or mitigate the adverse impacts identified
under subsection (4)(c)(viii).
Appendix E – Infrastructure Plan
(d) include any elements required by a federal land management
agency in order for the governing body to establish coordination or
cooperating agency status as provided in 76-1-607.
Not applicable
(5) The planning board may propose and the governing bodies may
adopt additional elements of a growth policy in order to fulfill the
purpose of this chapter.
Optional – Not done with this plan
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LegendCity Limits
City Limits MapSeptember 28, 2020Revised:
This map was created by theCity of BozemanDepartment of Planningand Community Development
¯1 inch = 4,664 feet
Intended for Planning purposes onlysome layers may not line up properly.
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