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Home My WebLink AboutG083-Master Plans-1990 Bozeman Area Master Plan Update -Final Draft � y � r w r ` z "fig'' OGTOB Y 90 Aommi r , .' r� � � � 1 '.��.'w �• ,I•`,,.4,y,hM 1''�'�r ��.. ��I,A'. ,� xN�Ny .� r ✓ f / ^MM ; r•r y�' .. .,...... .,,. 4 � i w r r � r r (1 , S I a yhf�A ; e �� s� � � .... �91J .... Y. �,'.• �� '�`nr.r� M r �� a� 'y� -1�55 a >xx—.m { • p ., j !raj�+1, A „�,.n '+,-Mj�r. 1 ..•.,.,'rw r� tl R''�11 f m�smf �:i •'^ •�° �'�vv�� . �M�y�J1 ��/.� Y `$ K i' ". a �• 1 yy � 1 _ ��.,'' '+ '• " '•;t � ,J r 1 � � �'� .. •x1R 57"w" 'r�va:rJ� �r f r� 41 1MEX r ' i .X......M�'I� �..J .="ti5 '��,, fr• r�., ,Wdlxnt�n:swnro.,.-.. .�V .:. ::`�r ii ! "• iJ1 C�.r lr n F' �� -/r ri a_:�_}* r,. i' ��1 Ai.! 1 'F '", ;; ..: mh n� Kra a .L.�:, •,•,•,� r ,L'��`5' . 'a „ .._��..,^,, ... r�;. n.. 1..� 1 �"'"•�� .,.. ,,., r.wd}r' •,1 i 1..,.. ? ,. „r•r '. •5 'w,.. ,......,99 n r r , • I" 55y. 1 n�MMiiM� t •r!� , ';;,n:n '�: j �.j A;a'�''"' �'1, t •'• ., ` �{ �. wry ,• iwwrv,t'lu�u,a.• I'5��1 ,5.•.nWN"rrl,•P,�! ' <',� ::d�. . � �,; �. ser ........ ' r 1�v. mw\\N\�:"'N N pity B�Ozeman r n•Cy, i . ........ , ti roll is �4-llltw 1• .......... � 't5 #*## FINAL DRAFT 1990 BOZEMAN AREA MASTER PLAN UPDATE October, 1990 Prepared for: Bozeman and, Gallatin County City-County Planning Board 35 North Bozeman Avenue P.O. Box 640 Bozeman, Montana 59715 Prepared by: BRW, Inc. 4643 South Ulster Street, Suite 1180 Denver, Colorado 80237 and Hammer-Siler-George Associates, Inc. 1638 Pennsylvania Denver, Colorado 80203 TABLE OF CONTENTS I. INTRODUCTION II. BACKGROUND FOR THE PLAN A. History B. The Impact of Planning C. Planning for Development in the Bozeman Area III. TNVFNTORY/ANALYSIS A. Socioeconomic Characteristics B. Existing Lend [ se C. Physiography D. Drainage:/Flood plains E. Utilities F. Transportation G" Parks, Rcec,,reaticn, and Open Space H. WsCgrlc Resources I. Housing IV. COALS, OBJECTIVES, AND rMPLEMENTATION POLICIES A. Environment, Aesthetics, ar)d Natural Resources B. Energy and Resource Conservation C. Historic Preservation D. Administrative/Review process E. Residential F. Commercial, Industrial, arjt3 Econoruic Development G. Public Facilities H. Transportation/Circulation V. P1,AN Ei.,EMENTS A. L' nd Use B. Parks/Open Space C. Transportation D7 Historic Resource Preserv,-ition E. Entryway Corridors VT. IMPLEMENTATION A. Capital Improvements Funding Strategy 81 Reguiatory Strategy FIQ WRES (Located in back of document) 1. Study Area 2. Physiography The following additional information is available in the 1983 Matter plan: (a) Figure No. 2, Slope Map, Section 3, Page 7 (b) Figure No. 3, Geology Map, Section 3, Pane 8 (c) Figure No. 4, Geologic Constraints Map, Section 3, Page 9 (d) Figure No. 5, Soil Map, Section 3, Wage 10 (e) Figure No. 6, Hydrology Map, Section 3, Page 11 (f) Figure No. 10, Soil Potential Map, Section 3, Page 30 3. Drainage/Floodplains 4. Utilities 5. Transportation 6. Open Space 7. historic Resources/Public Facilities 8. Master Plan 9. Overlay Districts LIST OF TABLES I. population, Bozeman and Gallatin County, 1960-1.987 2. Residential Building permits, Bozeman, 1980-1988 3. Non-Agricultural Employment by Major Industry, Gallatin County, 1981-87 4. Functional Classification Definitions/Principles 5. Functional Classification Characteristics 6. Park Standards 7. City of Bozeman Existing Park Facilities 8. Major Capital Improvement Projects, Bozeman, FY89-FY93 L INTRODUCTION The previous Bozeman Area Master Plan was prepared in 1983, and adopted by the Bozeman City Commission and the Galleitin County Commissiorl 011 December 12, 1983 and November 8, 1983 respec:tivoly, This document, the Bo7E�ma.n-,Ar�aMaster„Plan t_'pdate, has been prepared to: 11 simplify yIa.ster Plan land use recommendations, allowing for more, flexibility in decision making. 2) .give a stranger vision to land use concepts and projerr.s which recognize and enhance the Bozeman Area's unique environmental and cultural assets. 3) encourage more development within the urban Growth Area, and less scattered development in the unser•viced rural area. 4) identify long--term major capital improvement projects, beyond the scope of current annual funding, which will further Master Plan goals. 5) provide a basis for revision of the Bozeman Zoning Ordinance. This document updates, but does riot totally- replace the 1983 Bozeman Area Master Plan. The 1.983 Plan provides a good reference: for back g. rou d information. For example, data on soils, geology, groundwater, and other inventory- information which has not been used on a regular basis for decision-making area not included in this document. Since 1,983, other planning documents have been prepared, .and their principal findings are a basis of this Master Plan L-pdate. These documents inr_)ude: ° Objectives Goals and C7b ves Bozeman j v_ , city-County Planning Board, June 28, 1989, ° Bozeman Charts .Its Future A. Strategic Plan for [,oc:rai. Economic Development, Bozeman Certified Cities Program, October 1986, " Gallatin _Economic Profile. i<.}n. Cot.inty' �.n Econmic ro o „�. . ° Bozeman Linear Park ProDosal Dick Pohl, July 1987. " City cif Bozeman Parks�fnven , No Day e. ° Flood Insurance Date eta City of 13o�eman eta Index, Federal Emergency Management Agency-, July- 16, 1988. Bozeman Arterials, '�o th 19th Av�+nue - Oak a T..:.... �th_19. et+..f�. .g _ boulevard Final EIS, Montana Department of Highways, October 1986. 1 The Master Plan is organized into the following sections: II. Background forTthe Plan, a discussion of previous and Ongoing Planning efforts related to the piaster Plan. III. Inventory/Analysis, a summary of the primary factors influencing the Bozeman Area. IV, Goals, Ob_iectiv_es,_ and IrLinpLerpentation MPolicies, statements of purpose and action to direct the future of the Bozeman Area. V. Plan,,,E ements, the presentation of major Master Plan concepts in the areas of land use, transportation, open space, and historic resources. V1. Implementation, a summary of capital improvement and regulatory programs recommended to achieve the Master flan. 2 IT. BACKGROUND FOR THE PLAN A. HI$T. Fix The growth anc3 development of Bozeman must be compared to the bay.'„kgt•ound of early development throughout Gallatin County. Settlers began moving into the Ga latin Valley after the Lewis and Clark- Expedition in 1805. Their numbers increased significantly during the 1850':s and 1€ 60's, Bozeman became the focal point of count- activity and was named the courity seat in 1867. The development of the Bozeman Trail, a mare suitable route for travelers from the Midwest to gold camps in the West, also improved the position of Bozeman as <a major trading post. The highly productiVe- soils throughout the valley produced a variety- of agricultural products with Bozeman serving as a major distribution point to national markets. Recognizing the importance of the city's strategic location, the United States army established Fort Ellis, a military outpost., three miles east of Bozeman in 1867. The extension of railroads to Bozernan in the 1880's and the development of many local flour mills made Bozeman a strong agricultural rnxrketing hub, a vital Service point and a center of governmental administration. Bozeman was chosen as the site for the Montana College of Af riCulture in 1893. B. THE .IMPACT OF PLANNING Neither Bozeman nor any other community just happens vo develop at their locations. They are established because of plans and decisions carried out by people. A. plan For the City and surrounding area has provided a framework for construction and extension of the (.1ty's public facilities in an orderly- and cast-effective manner since the middle of the 1950's. Subdivision regulations were adopted by the City and t'ounty in the 1950's and 1960's. These regulations set standards for public: facilities planning and construction when new development takes place. They have contributed immeasurably to the efficiency of the community's public- services and facilities, and have been the moving force in producing a more functional :and attrar,tive community. Zoning was extended to the three--mile ex.tra.territorial b0llrld;3ry rRUOUnd the city of Bozeman in 1973. It requires at least ten acres per dwelling unit as a. means of discouraging development where public; earilities and Services t-.'ari not be economically provided. Tt calls for higher densities where subdivisions have been developed with streets and other improvements installed in order to encourage full use of these facilities. It allows for higher densities to encourage expansion of central urban facilities where engineering plans provide for expansion. The zoning regulations seek to protect agricultural activities by discouraging sprawl development. Zoning also aims to encourage improved public services and facilities at less cost. It encourages economic growth and development by providing for an attractive, orderly community. With few exceptions, Gallatin County and Bozeman City officials have insisted that the !Easter Plan be used to help make decisions affecting the community. As a clear and concrete policy, a formal Master Plan Amendment Procedure 3 was adopted in 1981 and amended in 1987 to meet the ever-chariging needs of the Bozeman area. C, PLANNING FOR DEVELOPMENT IV THE_SOZE:Nz N Past Comprehensive Plans The efforts of the Bozeman City-County Planning Board to prescribe land use recommendations to the local governing bodies originated in 1955 when the. first municipal planning board was formed, The City adopted its first zoning ordinance in 1941. The new planning board encouraged the adoption of the first subdivision regulations in 1956. In April of 1958, S,R, Deobcer.• k Company (planning consultants from Denver, Colorado) prepared Bozernan`s first master plan. It included studies on transportation, street planning, zoning districts, parks and recreation, schools, park reads and sanitation and kxewa.lth� The 1958 Master Plan predicted Bozeman would have a population of 18,000 people by 1.970. The 1970 Census showed 18,670 people living in Bozeman, thus proving its Master Plan projections to be quite accr�rate. The 1958 plan focused on the development of a transportation and street plan. Many- present-day supers were constructed based on that plan. The plan did not include a land use plan or a comprehensive plan for future land use. The major recommendations of the plan were to adapt a, master street plan, adopt a subdivision control. ordinance and adopt a master zoning plan. In 1960, the Planning Board updated and revised the major street Man. The update was somewhat trniyite because it included a detailed layout of Proposed :arterial a.nd collector streets for the entire jurisdictional -area. It included an inner loop roam, system comprised of Highlyind Boulev--,,rd, Kagy Boulevarc,1, 19th avenue and (yak Street. It also included an ourer loop system that encircled the city of Bozeman. In 1960,. the Planning Board also: I. Pre Dared a. draft ordinance to Update the city subdivision regulations, 2. Recommended that county subdivision r elg Nations be adopted, and as such, drafted a model, 3. Prepared ,a draft industrial ordinance, 4, Recommended the enactment of the transition overkiy district and 5, Recommended county zoning for the jurisdictional cir'er�. The craft zoning regulations for the jurisdictional area excluded building and development within 76 feet of all streams ,and prohibited building on arty slope greater than 30 percent. The maximum zoning ootside the central sewer and water district was proposed to be 10 acres per dwelling unit. In September of 1967, the Bozeman City-County Planning Board hired the first city-county planner. In 1972, a, revised master plan for the r,ity- was 4 cornpleted.The 1972 plan was the first master plan for the city to include a comprehensive land use plan and land use maps for both the c:;ity and the jurisdictional area. The plan included an extended set of goals and ob,jecCi;-es that ware formulated by a planning advisory committee. These ©orals were presentH.d in the plan but were never officially adopted bt- the governing bodies, The 1972 plan includes sections on population, housing, physiographic constraints, economics, parks and recreation, transportation and an existing land use study. It concludes with a set of recommendations and suggests strongly they be followed during the implementation procedure, These are: 1. Rural development nodes corresponding closely to present development and subdivided lands are identified. In these areas, the plan recommends development at the highest densities permitted with individual wells and septic tanks. It also suggests the appropriate zoning designations to obtain, desired densities. 2. The plan identifies undeveloped rural lands and recommends that development of these lands be discouraged. A density~ of 10 acres per dwelling unit has been established for the purpose of discouraging development in these areas. The subdivision regulations and the AS, Agricultural Suburban Zoning District, are used to implement this plan policy, This Agricultural Suburban zone requires 10 acres per dwelling unit, and subdivision plans are required to conform with the master plan and zoning regulations before approval. 3. In the :area identified for, expansion of the City's central sewer and water services, the plan recommends that development be discouraged until those services are extended to the property. The agricultural suburban zoning designation is {zsed ro require 10 acres per dwelling unit, with rezoning to a higher density when facilities became available, En Jtdy of 1975, the Bozeman area Growth Stud,,, was ,,orripieted by the Bozeman City-County Planning Staff. This stud' provides ,_tn o'.-erview of the reasons for growth in the Bozeman area and the effeces this has had on the community. The major emphasis of the Stud- is the effect urban growth has -an pvo •O:lirlg cost-effective publics services and facilities. This includes a growth study cost analysis and a growth study revenue analysis of tour possible growth situations the city and jurisdictional area could possibly encounter, The findings of the Study list three growth alternatives: 1. Contained growth, 2. Peripheral growth, and 3. Selective growth, with a recommendation on which 7f these alternatives may be best suited for the Bozeman area. In December of 1983, the local governing bodies adopted the Bozeman Area Master Plan prepared by the City-County Planning Staff. The ~faster flan contains summaries of special purpose plans for the Bozeman area and these were used to project. population growth, economic: conditiorls ,and land use trends. They Plan identified important land use issues and makes seve4,,3l recommendations. 1't recommended that development be restricted until central sewer and water has been constructed and it OnCOUrages development within the Sozeman sewer service area. The Plan also recommends consideration of development density transfer (the transfer of allowable density from an area not well suited for development to another area better- suited for development) to provide compensation to owners of land for which development may not be possible. There are 25 goals ,,.tnd 47 policies in the Master Plan that provide a basis for planning decisions. The Land Use Plan breaks the issues, goals and policies down into four major designations; 1. The area, within the city- limits of Bozeman is proposed to develop at urban densities with growth occurring as public facilities are expanded. 2. Development in the proposed sewer service area, extended about one mile ground city limits, is to be restricted to 20 acres per dwelling unit to prevent the City from becoming surrounded by large lot development. 3. All other subdivided areas are designated as rural development nodes. The increased development in these areas would provide for cost--effective services and would provide incentives for filling vacant lots in existing subdivisions, 4. 1_ndeveloped rural lands with no physical constraints are allowed to develop at a density of 20 acres per dwelling unit. numerical evaluation system was utilized in prer')ar�ing the ji.1risdic°tiona.l area land user map. The numerical system has also been LLsed to r,—%-aluate new proposals outside the sewer service area. Finally, the Plan recognized the natural beauty of Bozeman and the surrounding area. It calls for the protection of views, vistas ,and environmental resources, historic resource preser"c°acion, and prevention of unattractive strip development. Summaries of Existin.s�. .Plans 1'vastewate.rJacilit.y Plan. The wastewater Fac:il.iLy Plan ( 1978f was pt-epared primarily to analyze what was then the existing w,,Istewater treatment system and identify alternative systems improvements to the secondary treatment, of wastewater. Improvements were needed to eliminate Montane. Pollutant Discharge Elimination System permit violations being experienced at the time. A chosen improvements alternative was carried through the design and construction process, with its conclusion in 1982. The design of the 6 improvements was based on parameters identified in the facility plan,, including a design population of 55,000 in the Bozeman area. A sewer service area corresponding to this population projection was identified in the plan. This service area is the definitive boundary used by the Bozeman Engineering office. The wastewater Treatment Plant will be upgraded utilizing a phased construction process to assure that the facility can meer. the need of the design population of 55,000 in the Bozeman area. A number of trunkline sewers were also identified in the Plan rrid their locations shown inside the service area. This information is used to assure new development sewage contributions are distributed according to the facility plan, Areawide Water Plan, The Areawide water plan of May, 1973, s,atilized information contained in the 1972 Bozeman Area Plan to determine water system improvements for 1) immediate needs; 2) five to ten year plan; 3) long range plan. The changing needs of the City and the imposition of the Federal Drinking Water standards forced the City to construct a filter treatment facility somewhat sooner than indicated in the water~ plan. The southside treatment plant was completed in 1984, In addition to the filter plant, large distribution mains and additional storage facilities have been completed in accordance with the plan. Planning for further improvements to the water treatment and distribution systems continues. Water Rate, Evaluation. The original evaluation by Thomas, Dean & Hoskins in. December of 1977 was superseded by a similar evaluation completed by the er)gineering firm C:142NIHill. The CH2,MHill study of _august, 1984, established a cost-of-service rate structure that was subsequently approved by the :Montana public Service Commission. The cost of service rate struct:,are is reviewed annually, and the annual review process is appropriate for Bozeman at this time. Stormwater �Eastpr flan. The Stormwater ;Master Plan pry pax'ed in 1982 by Thomas, Dean & Hoskins, provides the technical criteria users by the Bozeman Engineering Office to review development proposals regarding storm drainage control. This control includes water quality treatment, maintenance of historic drainage patterns and runoff rate attenuation, The Plan envisioned that stormwater management be centralized and operated by the City as a utility, much life the water and sewer systems, A proposed ordinance to create and fund such a utility was included in the report. However, the City continues to require stormwater control only upon development, in essence maintaining the status quo. To provide areawide detention and treatment facilities would require difficL,ilt land acquisitions if the basins identified in the Plan were to be utilized. Housing Element. The Housing Element was completed in 1978 by the Bozeman City-County Planning Staff. The purpose of the study was to present information documenting the present and future housing needs for the community. The plan is a comprehensive study of population growth as well as housing types and conditions. It also evaluates the cost of housing and the supply and demand of housing types. The study also includes an 7 estimate of land requirements to satisfy future housing needs in Sozemar►. The City of Bozeman Housing Advisory Committee, established in December 1982, expanded on the Housing Element in Spring 1985. The Advisory Committee prepared a series of reports describing local housing needs and recommended solutions to Bozema.n's housing deficiencies. The reports established a list of priorities that should be addressed by the Bozeman community including the need to provide safe, affordable housing for low and moderate income people. Bozeman Party .and Rpc;.reation jnventory and Work Plan. The, Bozeman Area Work Plan was completed in 1975 by the Bozeman City oun.ty Planning Staff. The Plan is an analysis of inventories and surveys developed to determine community recreational needs and adequacy of the existing facilities to fulfill the present as well as the future needs. It has led to the formulation of development recommendations and plans for each park or park area, within the Bozeman area. In 1980, the Community Recreation Board completed a study of the Bozeman Recre,-ational Program. The study included an inventory of existing parks, their development status, a compilation of user ,groups and their needs, and recommendations. Areas of concern indicated by the study are; 1. A low level of public involvement and support for the Recreation Department. 2. Inadequate financial support and responsibility assignment to the Recreation Department by the City and County. :3. Inadequate recreation opportunities for the school aye population, 4. L.,,ic:k of a current recreation site acquisition and development 4c,hedule. The study recommended that: rural areas be assisted in providing recreation for youths through participation in voluntary associations and park development: planning; ° joint funding by the City- and the Count- he provided for the Bozeman Recreation Department; ° the Bozeman Recreation Department and Gallatin county Subdivision Review Office coordinate efforts on the disposition of parklands; policy- statements and an Inteviocal Agreement be developed that will better serve a renewed dedication to the concept of cooperative Community Recreation. There currently exists a Recreation Administration Department in the City of Bozeman. The Department is charged with the responsibility for planning and administering the use of the City's Park System. In addition, the: Parks department is responsible for the care and maintenance of Bozeman's parks 8 and other public recreational resources. The Recreation and Parks Ad,�,isory Hoard meets regularly to provide community input to both the Recreation Administration Department and the City Parks Department in Bozeman, Montana. C7�itdoorRecreation-Open $Pace Plan_ for Gallatin County. an Outdoor Recreation-open Space Plan for Gallatin County Wits completed by the Gallatin County Subdivision Review Office and adopted in 1989, The Plan contains a detailed inventory and description of all public and private park. recreation and school lands in Gallatin County, There is also an analysis of past growth and development in Bozeman and the ,jurisdictional area. The plan suggests the adoption of subdivision park location and development criteria, cash-in-lieu fund disbursement criteria and linear park linkages. This plan also calls for more City-County cooperation regarding recreation concerns. Bo eMan Transportation Plan. The Bozeman Transportation Plan was completed in ,January, 1982, by Mete Daily and associates of Helena., Montana, in cooperation with the Montana Department of highways, Federal Highway Administration, and the City of Bozeman.. The plan evaluates the existing transportation system for the City of Bozeman and reviews current street and traffic conditions by using projected growth information supplied by the Planning Staff in 1977; future traffic patterns and transportation network problems w°ere determined. The Transportation Plan is becoming outdated. Several projects identified in the Plan have been completed including 19th Avenue - from y(ain to Durston and Kagy Boulevard from Highland to Willson. The Bozeman Arterial EIS (October 19M provides updated information on transportation issues related to the North 19th, Oak Street, and Kagy Boulevard projects. m,..,._.. __p ?� ._ itv). The (r�aMPLl5 4aster Plan for Campus Develo m nt ( [ontana State 'niE ersi _ Plan was completed by the Office of Facilities Planning' of� Montana Strate University in March of 1982. The intent of the document is to record and analyze projected trends and changes in the University's academic programs; to identify elements of potential impact for future study, and to begin establishing guidelines for development of the campus, The plan projects an enrollment of 14,000 students by 1992 ,and 17,000 students by 1997. The University has revised its projected enrollments in the plan downward to an anticipated 10,200 students in 1992, rising slightly through 1997 to the 10,500 range. The Campus Master Plan produces three goals concerning the use of camps-4s land: 9 I. Campus development should be implemented with a recognition of further growth potential of bath the University And the city of Bozeman. 2, Central campus development should continue to provide an academic core in which pedestrian travel between most points will regs.sire no more than seven or eight minutes, 3. Open space within the central campus should be preserved, emphasized and improved. One major area of development which will serve both the campus and the community is the land south of Kagy Boulevard between South 11th and 19th Avenue. A map in the campus plan identifies Montana State University's preferences for land use and provides a solution the university feels will benefit the campus and the city. Three major land use designations are recognized as being needed: R-4 (multi-family housing); TR (Re-search- Technology),, and B-1 (Neighborhood Business). Final Retort for Bozeman Publig Schools. The study of Bozeman public schools was completed in February, 1,981, by the Blue Ribbon Commission. The commission was made up of 38 citizen advisory members appointed by the school board and ;A team of professional consultants. These groups were supplemented by graduate assist,�tnts from Montana State University, These groups were assigned to seven subcommittees dealing with population, financing, facilities, ,administration, the elementary program, the secondary program and auxiliary services, The study" inventories existing schools in School District "r 'end offers current and projected student enrollments through the year 2000. Student enrollments are projected to increase. The study outlined the numerous auxiliary services available thx•cu;h School District Number 7 which consists of The Adult and Community Education Program, the Pupil Transportation Servioe, the Learning Media Services and The Special Education Program, It also included recommendations for acquiring and establishing future school and park sites. In January, 1986, the Bureau of Educational Research and Field Services, Montana State University, completed an enrollment and facility study for Bozeman School District No. 7. The study analyzed community growth trends, population projections and facilities. The Bozeman School Board endorsed the project and bases its present course of action on the study's finding-S. The report stresses the need for new public. school facilities, after considerable demographic analysis, the study predicts a student enrollment increase from 4,152 in 1986 to 4,600 by 1995, This increase will require a new elementary school, The report also maintains that Emerson and Willson schools are unsafe, beyond cost--effective renovation, and will need replacement, The School District proposes to build a facility on the south edge of Bozeman. Although a bond issue put to the voters for new school facilities failed in the fall of 1987, the School Board Bond issue passed with substantial approval in September 1989. 10 Boz.ig.ran__GentraJ Business ,District Studs•. In February', 1972, the Bozeman City-County Planning Board, in conjunction with a group of downtown businessmen, solicited proposals to study Bozeman's Central. Btlsine >s District in four specific areas; 1. Marketability, 2. Circulation, 3. Parking, and 4. Design As a result of the 19712 study, ongoing efforts have been made to preserve the Bozeman downtown area and address its problems. 1n 1980, the Bozeman Downtown Development Association hired the architectural firm of Kommers, McLaughlin and l.eavengood to prepare a Phase I Downtown Bozeman Plan. Using the consensus-building technique called a "charrette", the firm compiled a priority list of objectives. The charrette noted the evolving nature of downtown Bozeman towards a cultural center, in addition to its retail trade emphasis. (Many objectives echo the recommendations of the 19"12 Downtown sti.tdy.) Principal among them were; 1. elimination of through truck traffic 2. provision of more off-street parking 3, development of a civic center In 1986, the Downtown Bozeman Association called for a review of viable alternatives regarding the following., 1. a sign ordinance 2. paving of the alleys 3. inc,.t•ea.sing the use of the iailoys 4. burying the power lines 5. providing more greenery along the streets and in off-street parking areas 6. providing a bus service from the airport 7. street lighting improvements 8. hiring a Main Street manager Again, the association listed the critical issues of ,i c-i%-ic center, off-street parking, and truck traffic on Main Street. Blu.e._ ibbonx of Bid Sky Water Quality '.,,'fanagement Plan. The comprehensive area-wide study of water quality in the Madison and Gallatin River drainage was begun in February, 1976. The study was sponsored by the Madison and Gallatin County governments including their incorporated cities and by the Madison and Gallatin Soil Conservation Districts. The Blue Ribbon's study was intended to determine the water quality of the lakes, streams and rivers in the Madison and Gallatin River drainage, and what must be done to insure their duality. The Water Quality Management Plan recommends a wide variety of alternative actions including zoning to control development density, treatment of streams, and city--county planning jurisdictional area, plans and regulations to restrict development to the central sewer and water service areas. it Energy' Element. The Energy Element was completed in June of 1982 by an enemy consultant employed by the City of Bozernan. The study deals with all aspects of energy use in the communit,,, Il: incl�ides studies relating recent consumption patterns to future enemy prices, enemy conservation to land use planning, and energy costs to transportation. The study concludes that low temperatures and long winters are the distinguishing characteristics of the Bozeman area climate. This makes Bozeman uniquely suited to building earth-sheltered and superinsulated structures. It also concludes that high density residential development ,such as multi-story apartments, condominiums and townhouses are the most energy efficient of all residential developments. Because of Bozeman's northern location and cloud patterns, a solar-heated structure is not as suitable. In 1981, there were 4,000 fireplaces and wood-burning stoves in the Bozeman area. Almost one-half of these have been installed since 1976, resulting in a surprising increase of risible air pollution, This increase in wood burning will affect the availability of firewood and will undoubtedly result in increased wood prices. The number of fireplaces and woodstoves has continued to grow proportionately with population increase, new construction, and the cost of nonrenewable energies. Consequently, concern by the community regarding air quality has also escalated. Although the air quality of the Gallatin Valley is far under federal and state hazardous air pollution standards, community participation, both public and private, is necessary to avoid further air quality degradation. With the increase in wood burning the availability of firewood and rndoubtedly wood prices will continue to be affected. Given this assumption, commercial wood prices may eventually parallel natural gas and electricity prices for home heating. Vehicle fuels represent over one--half, of all energy expenditures in the Bozeman area. If energy savings are to be made, greater decreases in personal transportation energy consumption will necessitate public: involvement in three essential areas: 1, Land use controls and incentives will have to prevent scattered development and encourage higher density development with central urban facilities. 2. Provisions will have to be made to provide for better bicycle and pedestrian transportation facilities. 3. Arterial streets will have to be improved to permit the free flow of larger volumes of traffic. 12 III. INVENTORY/ANALYS I S A. SOCIOECONOMIC CHAIAC ISTI S Over the past several decades, population and employment in Bozeman ani9 Gallatin county- have been growing slowly. This slow, steady growth is likely- to continue into the future, allowing the area to easily accommodate projected growth. population Population growth has had an average annual growth rate of about 2.3 percent over the past 25 years in both Bozeman and Gallatin Counts"; rapid growth occurred in the city during the 1970s. Bozeman's population has grown from 13,400 in 1960 to 23,800 in 1985 (the most recent estimate), while rountyr population has increased from. 26,000 in 1960 to 48,700 in 1987, as shown in fable 1 below. ............._�......�,.... Table 1. P()Pj-7LATION, BOZEMAN AND GAL_LA'1'IN, CQVNTY, _196g-1.987 Annual Change Population Absolute Percent Bozeman Cit.s 1960 13,361 1970 18,870 551 3.5% 1980 21,645 278 1.4% 1985 23,809 433 1.9% 1987 24,171 181 0.8% Gallatin County 1960 26,045 1970 32,505 646 M% 1980 42,865 1,036 2.8°! 1985 47,151 857 1.9% 1987 48,700 773 1.6% Source: U.S. Census Bureau Population Forecasts, Gallatin County-, 1988-- 2010 and Hammer, 5iler, George Associates Estimates of future population vary depending on the source. The most comp ervati.ve forecasts estimate population growth For the City- ,and County at about one percent annually. Other sources are more optimistic, estimating an annual .growth rate of over five percent between 1990 and 2010. Given recent trends, a slower rate of growth seems more likely. Residential building permits echo the population growth of the 1.980s with an average of 177 building permits issued in each of the nine years, ,as shown in "fable 2 below. About 33 percent of the units have been for single family houses and the remainder for multi-family dwellings. A surge in multifamily construction in the mid 1980s reflects the availability of financing and local economic prosperity. 13 Table 2. RESIDEIg AL BUILDING PERMITS, _13Q2EMAIN,_,1;380-1988 Single Family Multi-family t'nits Units Total 1980 56 98 154 1981 57 99 156 1982 51 37 94 1983 122 311 433 1984 88 299 387 1985 65 129 194 1986 33 77 112 1987 30 7 37 1988 28 3 31 Average 59 118 177 Source: City of Bozeman Fewer residential building permits can be expected in the future, as has been the case in the past two years, reflecting the slower population growth. At an average of six dwelling units per acre, about 30 acres of land ha%'e been required for new residential development each year, and a comparable land requirement can be expected in the future. Building permits Lire required for constrtiction in the extra-territorial zoning area and within the City limits of Bozeman. Building permits are issued by the City. The building permit totals illustrated in Table 2 above include totals for both the extra-territorial area and for permitted construction activities within the City limits. Em2loyment Employment has also been growing slowly, at an average ,,tnnS.E,,al rate of 2.6 percent in recent years, as shown in Table 3. n%'erall the number of jobs in Gallatin County has grown from 21,200 in 1981 to 25,400 in 1987, Services, government and retail trade are the largest employment secr-ors, representing nearly 75 percent of nonagricultural employment in 1987. In terms of absolute change, services have been growing most rapidly, and this growth is also reflected in the rate of change. Both retail trade and government have been growing more slowly than total employment. Montana State University remains the largest employer both in the City and County, accounting for about 2,000 faculty and staff jobs, both full-- and part- time. As enrollment stabilizes in coming ,years, so too will University employment. During the 1980s, employment in Gallatin County has been growing slightly more rapidly than population, an annual rate of 2,6 percent compared to 1.6 percent for population. The expansion of employment in the retail trade and 14 services sectors indicates the important role of tourism in the local economy. Government continues to represent a significant number of jabs, Although its percentage of total employment has been declining slightly, The relatively slow rate of population and employment growth is €ikon.y to continue into the future. Even if employment and population were to increase to previous high-growth levels, the community vision presented in the master plan simply would be achieved more rapidly. Any unforeseen event or drastic change in the local economic outlook which would stimulate a radically different development pattern or infrastructure requirements would be cause to reevaluate the master plan. B. EXISTINGML.AND C.'Slw The most recent inventory of land use was done on-site in the city and the jurisdictional area was completed in 1981. The amount of land in each zone, as well as the amount of land in use, was then measured and recorded. Upon completion of the land measurement work, the data was summarized and totals for planning areas were compiled. All of the acreage figures include the areas of adjacent streets, roads and alleys. There is also a total for area of road% in the city and jurisdiction. In order to further document existing land uses within the Bozeman Are. , staff is advised to perform a detailed existing land use inventory in conjunction with the 1990 census. It should also be rioted that County Planning and Zoning Districts are excluded from the activities of the City-County planning Board. Residential Land Use The majority of housing in Bozeman and the jurisdictional area is single- family residential, According to the land use inventory conducted by. the planning staff in 1981, 52 percent of all housing in the, city was comprised of single fr_amily housing. This was equivalent to 3,184 housirig units. There were approximately 783 acres in use for sin:;le family.° residences in 1981.. This comprised about: 17 percent of the city's total band use. At the same time, there were 2,885 multi-family units in the City, .,accounting for 48 percent of the City's housing stock. Since 1981, almost 1,500 additional units have been constructed in the i ity, of which about two-thirds have been multi-family. .after a peak construction of 433 units in 1984, construction has dropper dramatically. The average annual housing construction for the decade of the t980's has been 177 units. There has been a slow but steady conversion of single family- residences to apartments in Bozeman. These conversions generally relate to supplying university students with housing, and the majority of these conversions have taken place in the university area From 1970 to 1981, approximately 900 multi-family units were converted from single family residences. 15 Tn Bozeman, the demand for mobile home dwelling units as a housing alternative is somewhat less than the demand for single family, multifamily and apartment dwelling units. There are approximately four and one:-half acres of land utilized for mobile homes on individual lets within the City of RbzPnt t,n. Where are approximately fa acres of land with developed mobile home parks scattered around the City with nearly 500 mobile homes situated in these parks. A majority of the mobile home parks are developed to capacity. 16 m M oat �C i� it at tr �i cv C7 N d4 M _4 C1(J u7 W to pp 4 C� Cri M Y�+ C'H to C4 u9 Q N r1 Ln 0 to m � rr rH eTl 4CY ww O CO N tD M Cr 0 M t- O W M N C? a4 u7u7T�, NMxrlNCO (� Ci M .--< CG C7 O Oq u9 0 m N «•w..i .--i uy.-i cD tD N �" O� u i m m «wu7GOt`7tD .MC�3 ww � � w mqq O I co LO LO Oyp�jvC4 NG 0 V L- LO +a N t- LO t- N tO E- 14 �D c90 Ch pp N LO - 0 - w " tom- i . N �J C- mx2 SOON p m N N d a0 cD cQ d�tn m r+ �} w O U 0 o ,� E4 O °z u p � � Fxwrnc� �" c° The number of available mobile homes had been, increasing both within the City and within the extra-territorial jurisdictional area where land is more plentiful to develop mobile home parks. Existing mobile homes and parks had been developed nearly to capacity until the fall of 1987. A decrease in demand, however, has changed the need for this horsing alternative. The annexation of the Annie Subdivision to the City of Bozeman in 1987 provides for the addition of 78 residential-Mobile home lots to the market. This reflects a continued Community trend to provide available mobile home housing lots and housing alternatives within the City limits, but the land owner has negated the action of the City by placing covenants on the land to prohibit the siting of mobile homes. The majority of growth that has taken place in the ,jurisdictional area in the last ten years has been single family residential, large lot growth. As of 1981, there were 1,558 single family residential units in the jurisdictional area (outside of the City, within the City-County ]:Manning Area, Figure 1). The land use survey conducted in 1981 showed approximately 2,000 acres of lend being utilized for single family residences at that time, and over 7,000 acres have been subdivided into residential lots of 20 acres or less. Commercial Land 1-'se Approximately 290 acres of land are being utilized for commercial uses in the city and 241 acres are being utilized in the jurisdictional area.. There are three zoning designations for commercial land in Bozeman and the jurisdictional area: the Central Business District; highway commercial development, and neighborhood commercial development.. The area zoned for the Central Business District is approximately 94 acres in size. Only 32 acres of this area is c«rrently in commercial use. A major portion of this land remains in single family residential use. Therefore, there is more land available for commercial use Within the Central Business District than may be expected to be utilized in the near futureL. As the commercial activity in this area expands, the single family residences will be converted to commercial ase. There are approximately 500 acres of land zoned for highway business use in the City of Bozeman with about 250 acres being utilized at the present time. The majority of this development has taken place along North 7th Avenue and West whin ,Street. There are approximately 38 acres of land zoned for neighborhood commercial with about 20 acres being used at this time. The majority of the developed commercial land is in the University area, with locations set aside in Valley Unit Subdivision and the Story Hills Annexation. 18 Industrial Land CJ._.se There are presently 679 acres of land zoned for industrial in the city- of Bozeman. Of this, 135 acres are now being utilized for light industrial purposes in the northern portion of the City. The majority of this land, however, is either owned or controllers by the Burlington Northern Railroad and is not available for development ,at the present time. There ar,? 52 acres zoned for technology-research with nine a<:res presently being used for the existing electronics assembly plant. There are seven additional acres for plant site expansion adjacent to the existing plant. The remainder of the zoned land is located in Valley Unit Annexation, Agr e.gItural_Land l~'se(�'se The land use survey prepared by the planning staff during the summer of 1981 showed 41,947 acres of the jurisdictional area, outside the city to be in agricultural use. This is approximately 82 percent of the total land area. Over 90 percent of the land in the west and north-west planning areas was in agricultural use, and nearly 85 percent in agricultural use in the east planning area. Agricultural activities have not been as severely impacted by urban development in these areas as in some others, and these are areas with the more productive soils on moderately sloping to level terrain. Large acreages were also in agricultural use south and southwest of the city. The southwest planning area contained 6,91.6 acres, nearly 80 percent of it in agricultural use. The southern planning area contained over 7,300 acres in agricultural use, which is about 72 percent of the Wtal land. These are also generally more productive soils can .gently sloping to level terrain. Approximately 23,E-10 acres of the City--Cotin.t:y Planning 80ra,rd'8 jurisdictional area is zoned. Some 21,438 acres are zoned Agricultural Suburban, which requires ten acres per dwelling unit. Abour. one h...lf of this, 10,238 acres, is undeveloped land for which the agricultural use potential has not been impaired by urban development or local subdivision activity. Existing residential development in the jurisdictional area outside the City of Bozeman occupies about 3,122 acres and has a population of about 5,787 people and 2,278 dwelling units. The average developed residential property is approximately 1.41 acres in size. PHYSI.O.GRAPH Y Bozeman is located in the Gallatin Valley, near the foot of the Bridger Range of the Rocky Mountains, which rise just east of the City (Figure 2). Much of the area to the northeast, east, and south of the City of 19 Bozeman lies within these foothills, and is in excess of 15% in slope. This area creates the visual backdrop for Bozeman, with the surrounding fiat agricultural Valley creating a striking contrast. The physiography which creates this unique environment also presents general constraints to development. Slopes greater than 15% create problems for urban development, including potential erosion, steep access roads, and visual scars resulting from road and lot grading. Steep slopes in the Study Area include the foothills and the area above Sourdough Midge in the eastern portion of the City, All of these ridges and steep slopes add visual character to the Bozeman area, and development of these features should be discouraged, or carefully designed to avoid visual impacts. The formation of the Bridger Range to the east and the Gallatin Range to the west and south has created several fault lines. The exact location of these faults is not easily identified, but they have been generally located (Figure 2). The displacement along these faults is generally less than one foot, but displacements of more than 20 feet do exist. Development in the vicinity of these fault lines should be discouraged. A significant volume of detailed information regarding the physiography of the Gallatin Valley and the Bridger Range is available. Physiographic resources studied include extensive slope analyses, geologic assessments and complete soils ,analyses. In addition, surface water studies and ground water analyses have also been Completed, This information is available for review in greater detail in the original Bozeman Area Master Plan (1983). This 1983 document, and the detailed information contained within, will continue to be integral information important to the administration of planning and development approvals within the jurisdiction. D. DRA_IN.AGE/FLD©DPLAINS Bozeman and the Gallatin Valley are crisscrossed with nt4merous creeks and irrigation canals. Most of the creeks flow from the 5ou.theast to northwest, to the Gallatin River (Figure 3). Major creeks within the Planning Area include the: ° East Gallatin, River, in the northeastern portion of the City and Planning Area ° Bozeman (Sourdough) Creek, flowing south to north through the City into the East Gallatin River ° Spring Nash, Mathew Bird, and Figgins Creeks in the southern portions of the City ° Hyalite Creep, southwest of the City Rocky Creek, flowing northwest along the Interstate, into the northeast sections of the City ° Bridger Creek, flowing west from Bridger Canyon, joining, Bozeman and Rocky Creeks north of the City to form the East. Gallatin River. 20 �faee�e�tl7c��.;a,.�.-w�el�-ssth��.-rrir�rt�er�-Gazsrs�;are,-a�-t�trr� irra - ropCrtr �r r� ^,crb ie- Bozeman Creek has been channelized and rerouted into a storm pipe as it flows through the center of the City. All of the drainages in tile- Bozeman "alley- are a critical resot.lrc.e, and have great value for use as visual open space and recreationrorridors. Groundwater is another important water resource in the Gallatin Valley, Generally, groundwater is near the surface, and flows from south to north to the East Gallatin River. Locally high water tables (less than 10 feet from the surface) exist throughout the Valley, High water tables are a problem for construction of basements, and also cause septic tank leach fields to malfunction. Gallatin County and the State of Montana allow septic tanks and leach fields on one--acre lots. While no adverse groundwater quality effects have beers documented, the cumulative effects of septic systems on ground and surface water quality continues to be an environmental concern. In addition, high water tables also pose constraints to development, where the storage and disposal, of wastes and chemicals will required. Care must be taken to develop a Plan that acknowledges the importance of the groundwater resources in the Gallatin Valley. 1<, UTILITIES The City of Bozeman provides water and sewer service to areas Within the corporate limits. In addition, the system has the potential to expand within a future: service area, Montana Power Company provides electric and gas service to the Gallatin Valley. At this time, the Environmental Protection Agency is promulgating increasingly stringent rules governing the supply and treatment of drinking water, disposal of sewage sludge, municipal solid waste landfilling practices and stormwater runoff quality- and treatment. It would be premature to predict the final rules. It is not premature to recognize that the future needs of these areas is going to be directly affected by the EPA. Water System SuRRly. The present ws,ter supply for Bozeman is t,�aken from three sources, Lyman Creek, Bozeman (Sourdough) Creek, and Hyalite (diddle) Creek. Lyman Creek, located northeast of Bozeman, derives its so►,ree from a number of springs. Average flows approach 134 miners inches during the summer with a low of 50 miners inches in the late winter. The city has the right to the first 238 3/10ths miners inches of flow. The water from, Lyman Creek is treated with chlorine and fluoride. The Bozeman Creek system, located south of Bozeman, consists of a small intake and settling basin on Bozeman Creek, about six miles south of the 21 City. The City has rights to 250 miners inches of normal flow and Nights to Bozeman Creek flood water. Minimum flow in Bozeman Creek is often less than 625 inches of decreed water rights. The minimum flow in the summer is 2,900 miners inches. The water of Bozeman Creek is filtered and treated with chlorine anti fluoride. 'cystic Lake, in the past, has supplemented Bozeman Creek during summer months. Since that time, Mystic Lake has been breached dui: to structural deficiencies in the dam and the future of its use has not been resolved. The reconstruction of the Mystic Lake slam at arl alternate location is, however, being actively pursued. Resolution of the issues surrounding reconstruction of the structure itself, stability of the. surrounding bedrock, and the potential reuse of Mystic Lake as a domestic raw water supply are: yet to be made. The Hyalite Creek system, located south of Bozeman, contains the Hyalite Reservoir, a diversion strtic.ture on Hyalite Creek., with a settling basin, and a 21-inch transmission line, :approximately 20,000 feet long, that links Hyalite Creek to the filter plant on Bozeman Creek. The City of Bozeman has contracted with the Middle Creek Water Users Association for 2,905 acre feet of water stored in Hyalite Reservoir. Distribution. The distribution system (water mains 10 inches and; greater) within the City is shown in Figure 4. Water is treated at a point: six miles south of the City limits on Bozeman Creek, and can also be treated at the Lyman Reservoir, one mile northeast of the City limits, These two treatment facilities, Southside and Lyman, supply the City storage and distribution system. FUture. Needs. The northwest portion. of Bozeman between Durston Road and Interstate 90 is serviced by dead-end lines. A 12-inch line on Oak- Street from North 7th to !forth 19th, north on 19th to Baxter, then east on Baxter under the Insterstate would provide a loop for the system, thus providing a second source of water for additional fire protection in this portion of the City. The City" of Bozeman needs to increase its available supply of water. This can be accomplished in part by better utilizing the water which the city has available. To better monitor the amount of water the city is using, inflow, overflow and outflow metering devices will be installed at the water treatment plant. The City also intends to insr.rill metering on all residences in the city that are unmetered. While the City of Bozeman had decreed water rights to approximately 13,000 arse feet of water, several factors combine to make the reliable yield of water rights much smaller. The low flows of later summer, winter, and drought periods are much smaller than the decreed rights so that supply is actually smaller than the right. The net result is that the reliable yield of water rights is substantially smaller than the decreed water rights the City owns. Freezing constricts water intakes so that water quantities are reduced during the cold winter months. Water demand is higher during certain times of the day. Since the 22 intake gates can not be constricted or opened as demand rises and falls, water is lost during low demand periods. Reservoir discharge can not be reduced to store the lost water. The amount lost increase4 as demand increases. :although inadequate metering at the City intake, storage reservoir, homes and outlet facility make estimation iiffic lllt,, losses in the distribution system through leakage are estimated to consume approximately- 10-15% of the water entering the distribution systems. In 1980, the City diverted 7,695 acre-feet of water, but the reliable yield was approximately 6,566 acre feet (an acre foot is a measure of the volume of water). The deficit was made up by purchasing water from the Middle Creel: water Users :association out of Hyalite Reservoir. Purchased water is available only after the irrigation season and can not be depended upon. Since 1980, the City has acquired enough :additional water rights to bring its total reliable yield to ;approximately 9,000 acre-feet. The proposed rehabilitation of the Hyalite Reservoir dam would result in as mi_icHh as 2,334 acre-feet of additional stored water available to the City, with a reliable yield of 1,867 acre--feet. A variety of potential sources of water needs to be aggressively inve5t,igatPd. Recent, studies by several parties have suggested the following possibilities: 1. Repair of water leaks in the distribution systems, 2. Providing demand-surge raw water storage at the filter plant, 3. _fictive wager conservation through economic incentives and education, transfer of agricultural surface water right's, 4. Construction of additional storage capacity on the surface at the distribution point or in the mountains, 5. Development of ground water storage using flood water in the spring, 6. Development of near surface or deep .ground w,-iter supplies, and i. A conservation/education program. Options for the development and main tenanc':e of adequate quasi- PLIblic water and sewer services exist outside the City limits of 3ozeman throughout, Gallatin County-. The Gallatin County Commission provides for the creation of community water and sewer districts in t-u al portions of the County. The creation of one of these districts Will r.'illc�t: for the cost effective provision of central water and sewer services. The establishment of one of these districts allows. thM Counts- to 1pvly taxes, servicing bonded obligations for improvements in rc. ni]. subdiisions. The Rae and Riverside water and sewer districts ,are examples of successful private community systems, lo( ,ated in the Juvisdictional ,area. These systems have both provided opportunities for the development of rural subdivisions outside the City limits, Further investigation regarding the establishment and use of central community utility systems is necessary as Bozeman implements the Plan. Stt dies are needed to inventory and assess the potential sources of 23 water for the City. To adequately assess the water needs of Bozeman, a good water metering system is needed at all major diversion, storage, and outlet structure% as well as all residences, The data lathered frorn metering, the inventories, and studiws should be integrated into a detailed plan which addresses the water shortage the Cite faces. Sewer. System Existing Facilities. The Bozeman sanitary sewe t. system is made up of pipes of various sizes and materials terminating at the wastewater treatment plant on Springhill Road, north of Bo7eman. The northern portion of Bozeman is served by a 20-inch collector that parallels the Burlington Northern tracks to a point just south of the new treatment plant. The western and southern parts of Bozeman are collected into a 24-inch line: (Figure 4). This combined sewage is then brought into the plant in a 30-inch line. Future Veeds. The Bridger Canyyon trunk system was installed as private sew,?r from Rouse Avenue north of Griffin Drive near the Humane Society building and extending eastward to include Bridger Industrial Center and the Bridger View Trailer Court. This system, when repaired to meet City standards, may be extended to provide collection for those areas along 86dge;r Canyon Road that are heavily developed areas now using private water wells and individual septic systems. The Sourdough tr3,knk system, if and when constri,irted, will extend the systern from Kagy Boulevard to include those areas west of Sourdough Road and south of Kagy Boulevard that are not currently within the city limits. Annexation to the city will be a requirement for sere'ice. They University interceptor was installed :,along Durston Road and was then extended south to serve the Main Mall and part of the Triangle ,annexation Area as well as intervening land. This system will eventually be extended to Lincoln Street and then cast to 19th Avenue. The far west trunk has been extended from the intersection of Baxter Lane and 1.9th Avenue to service the Valley Unit area, and it will eventually be extended south to service the area south and west of Bozeman,. Some older sectors of Bozeman contain deteriorating, undrr4iU;'d sc Wft r lines which need to be replaced. This problem will become more acute in the future. It will be a very' e%pexnsive problem to corvec t, aInd lofl�r- range financial plans are needed to help provide a strategy- for correcting it. The Bozeman wastewater Treatment Plant has been designed to serve a population of approximately 555,000 people, and is designed to be constructed in phases. Each phase of construction will be consonant with the needs of Bozeman as anticipated growth occurs. The ,addition of primary clarifiers and construction of additional sludges holcIing fronds will be important components of the eventual expansion of the 24 Bozeman Wastewater Treatment Plant. It should, thus, serve the projected population of the City well into the twerity-first c:,:erltur�- The study area for the wastewater treatment plant comprises about 6',000 acres outside the present city boundaries, Appt-oxirYrsately 600 to 00 acres of this land are developed, primarily in large residential lots with individual welts and septic tanks. Nearly 4,000 acres are .-,tc':ant but are. subdivided into Dirge, low density residential building lots and 20-acre tracts. The remaining land c„omprises about 2,000 ,acres in vacant or agricultural use. An immediate problem is to prevent the Cite from becoming hemmed in by large lot development to the extent that growth will be impeded and the central facilities underutilized. Municipal Solid Waste Existing S stem. The solid waste disposal site for Bozeman and much of the Bozeman area is a 200-acre site located northeast of Bozeman on Story Mill Road. 4f the 200 acres, there are only about 80 acres that: are usable for, landfilling municipal solid wastes. The remainder of the parcel is traversed by two main drainages. The portion that. is not now being utilized by :,active landfill operations is being leased for agricultural purposes. The city collects solid waste from 4,200 residences within the corporate limits. The remainder, primarily new subdivisions, Montana State Ta niversi.ty on-campus housing, and all commercial establishments are picked up by other haulers. All of the c.:ity--collected solid waste and Montana State University solid waste is brought to the landfill, as well as much of the surrounding area's waste not collected by private haulers. The ina,jor private hauler utilizes the landfill facility at Logan. Current Operation, The Garbage Fund is an enterpHse fund with two major reveni,1e sources, collection assessments and "tipping" or gate fees said at the landfill. Collection assessments are paint annually, the c;h,arge based on the number of rooms of the residence served. Tipping fees are based on the volume of waste brought to the landfill. More specifically, the charge is based on the size of the vehic hl . The City operates two three-man packer trucks thar, operate five days per week. Solid waste is collected on a weekly basis. In 1989, the City purchased a landfill compactor for use in dail�- operations. The compactor's effect is an increased density- of landfilled materials which will better preserve cell integrity, lessen the area landfilled and covered daily, ;and extend the useful life of the landfill. Future Operation. Major changes in the Garbage Fund are anticipated.. First, the collection assessments are being revised to better reflect the actual quantities of solid waste generated by the individual residences. 25 this volume-based rate structure, in combination with a City sponsored recycling program, is anticipated to cause a shift in ('.onsumers' attitudes regarding disposal of solid waste. Second, the tipping fees at the landfill are being revised front the current Volume base to a weight base. Landfill scales instilled in 1988 have+ been in continuous use Since, providing an historical record of landfilled tonnages. The new fee schedule will provide for a better correlation between fee charged and materials handled and will allow for r„ompt�teriza.tion of fee processing. Specialty items with extraordinary short and long term handling requirements will see a higher fee. The life expectancy of the existing landfill site is approximatel;. 12 Fears. Options for the handling and disposal of munir;ipal solid wastes are being considered through a joint effort by the City and County. Options include a county-wide solid waste: landfill site and recycling program(s). ,-�trr�-e- re$#et l artc it i� All options will be considered in accordance with the Environmental Protraction Agency's hierarchy of waste management techniques. 'gamely, 1) Reduction; 2) Recycling; 3) Incineration; and 41 Landfilli-ng. Capital expenditures planning ranges from the most expensive projects of new landfill site acquisition and incineration plant construction to lesser cost projects of transfer station construction and City-operated recycling program equipment. The direction of efforts will finally be determined through analysis of all available options as identified and the impending Resource Conservation and Recovery .act of 1.9 6 Subtitle D revised rules. F. TRANSPORTATION The Bozeman Transportation Plan was completed in 1982. The Plan's principa€ concept is a loop system comprised of Highland Boulevard, Kagy Boulevard, 19th Avenue, and Oak Street, With the traffic: congestion currently experienced in the center of town, especially on Main Street and 7th Avenue, the completion of the edge arterials t;oulci create a significant benefit. Figure 5 illustrates this loop system, as well as the existing and proposed classification of streets in the Bozeman area. One of the implementation policies of this plan is to "review the, (,urrent transportation plan and update to provide enhanced vehicular, bicycle, and pedestrian circulation". The community is actively pursuing this policy, and when completed will be integrated into the transportation planning information, contained herein. Functional Classification 26 Several systems are used to classify roadways. Svstems have been developed which assign roadway construction/maintenance responsibility, funding distribution and administration, and numbering designations. For transportation network planning as well as specific design purposes, highways are most effectively classified by function. Roadways have, two basic functions: ° Provide mobility from point to point, ° Provide access to adjacent land uses. From a design standpoint, these two functions have proven to be incompatible. For land access, low speeds are desirable, usually accompanied by inconsistent flows; for mobility, high speeds and uniform flows are desirable. For example, freeways CiLre designed and constructed to satisfy demand from the traveling public for high mobility. Rapid travel between points in a safe and uniform manner is the primary objective. Access to land uses is tightly controlled, limited only to spaced interchanges to preserve the high-speed, high--volume characteristics of the facility. Extremely dangerous cvondition5 would result if low--speed, land access traffic were permitted on these roads. Conversely, local roadways are developed with the primary objecti�-e to provide convenient access to the adjacent land areas. Between these two extremes fall the majority of all roadway Mileage. This group is the most difficult to classify because the roadways must provide both land access and mobility. Roadway function establishes the type of transportation service that is provided. Directly related to the type of transportation service provided is the degree of access control. Increasing control of access allows traffic to travel in a more uniform manner, allowing design speeds t-ti be increased. Table 4 shows the relationship between categories, functions and access control. Four basic functional categories are use to classify- roadways, These categories are defined as: " Principal Arterials ° Major Arterial Streets ° Collector Streets ° Local Streets These groups snake up the hierarchy of functional _lasses which relate directly to the different levels of travel demand from the public. Travel demand is easily identified according to the types and lengths of trips which individuals attempt to make. TABLE 4 Functional Classification Definitian_s.�Princi�aits 27 Degree of Private Category Primary Function A ;cess Control Principal Arterials Mobility Freeways Total Expressways Very High Major At-Grade Arterial Streets Very }sigh Major arterial Streets Mobility High Collector Streets Mobility/Accessibility Transition Local Streets accessibility Minimal Source: BRW, Inc. Princi al -arterials. The Principal :arterial System is a system of streets and highways which can be identified as unusually significant to the region in which it lies in terms of the nature and composition of the travel which it set, -es. The Principal Arterial System should serve the major centers of activity- of a metropolitan area, the highest traffic volume corridors, and the longest trip desires, and should r:,arry a high proportion of the total urban travel on a minknum of mileage. The Principal arterial System should carry the major portion of trips entering and leaving the urban area, as well as the majority of through movements desiring to bypass the central city. Cn addition, significant intra--;:area travel such as between central business districts and outlying residential areas, between major inner-city communities or between major suburban centers, should be served by this class of facilities. Due to t:he nature of the travel served by the Principal Arterial System, almost all fully and partially controlled access facilities will be part: of this functional class. However, this system is not t°rstricted to controlled access routes. Design types which are often included under the Principal Arterial System are. i. Interstate Highways ii. Freeway and Expressways W. Partially Controlled Access Roadways The spacing of urban Principal Arterials will be closely related to the trip-end density characteristics of particular portions of the urban area. While ra firm spacing rule cannot be established that is applicable in all circumstances, the spacing of Principal Arterials may Vary from less than one mile in the highly developed central business area, to fire miles or more in the sparsely developed fringes. For Principal Arterials, the concept of service to abutting land is subordinate to the provision of travel service to major traffic 28 softening urban areas. Open space is defined as any land which is provided or preserved for park or recreational purposes, conservation of land or other natural resources, historic or scenic purposes, or assisting in the shaping of the character, direction and time of community development, The definition includes ,agricultural land, parkland, floodways, stream beds, water sheds, and hazardous building areas (including slide areas, fault zones, and steep slopes). It also includes both public and private lands. Open Space is illustrated in Figure 6. Existiniz Parks Bozeman has developed a system of small neighborhood parks, largely dedicated as part of the residential subdivision process. There are also several parks which serve the larger community due to their size or speci.al facilities. Existing City Park facilities are listed in Table 7, and located on Figure 6. The City currently has 8.4 miles in their trail system, including 2 miles in the Sourdough Nature Trail, The City has also designated a portion of the Gallagater Trail for use. The Gallagater uses the old Milwaukee, St. Paul, and Pacific: Railroad corridor between South Church Street and Story and Kagy Boulevard, about 1.2 miles. The trails are <�vailable for walking, running, or mountain bike use. .also shown in Figure: 6 are other public lands in the Study Area which may be available for recreation. These areas include Bozeman holdings outside of the City, County subdivision parks, State lands, and Federal lands (Gallatin National Forest). These public lands provide a wealth of passive recreational opportunities only miles from the City. E tl,tre Needs The following are the identified future needs of the community; 1. The City and County have an outstanding opportunity to create a linear open space network. The open space network could follow" streams, drainages, old railroad right-of-ways, utility easements, and roads. The open space network could preserve some of the most important natural assets of the Valley, including the stream corridors. Moreover, the open space network would make recreational opportunities immediately available to city residents, including such activities as walking, running, biking, cross- country skiing, and fishing, SLich an open space network would be a symbol of Bozeman's commitment to both environmental protection and outdoor lifestyles. 2. To create a large park for use by all residents of the area. The park would include athletic fields and other multi-purpose facilities. The park should be geared to all age groups. 3. Preservation of open spaces including prime natural areas is important to the Bozeman community, 4. The community needs a facility for all age groups for indoor and outdoor 32 recreation, 5. A Recreation Master Plan emphasizin4 programming and facility development should be completed. 6. A Parks .and Open Space Master Plan should be completed to include land acquisition, development of parks, renovations, equipment and maintenance. 7. In that, the East Gallatin Recreation Area provides a unique opportunity to Bozeman, the area should be included as part of the park network, S. The Bozeman Swim Center is a major emphasis of recreation in the at-ea. It is important that the City continue its commitment to this facility. 33 TABLE 7 City of Bozeman -Existing.__Park Facilities Name 5ige (a.c. lypelPotentir � � ial l:scilities *1. Christie Fields 6.5 Specialty Ballfields 2. ABC Park .1 7 Neighborhood Undeveloped 3, Annie 4.5 Community 2 acres undeveloped 2.5 acres linear 4. Lindley 12,6 Community Stream, Ponds, Pavilion 5. Bogert 6.8 Community Swimming Pool,Hockey Rjn.i;, Band Stand, Tennis Courts, Pavilion 6, Cooper 4.1 Community Open space r. Beall 2.2 Community Ice Rink, Art (:entt:r 8. Southside 2.8 Community Tennis, Ice Rink, Warming Hut 9, Kirk 13.3 Community Balifields, Covered Tables, Creek. 10. New Hyalite View 47,50 Neighborhood C-ndeveloped 11, N. Grand 2.5 Community Ballfield 12, Centennial 1.8 Neighborhood Senior Center 13. Soropti'mist .3 Community Mural *14. Wally Byarrr Grove 2.6 Neighborhood Pavilion 15. cold Elks/Highland Speciality 10K of trail Midge Trail 40.0 Community Horseshoes 16. Sourdough Trail 2.0 (mi. ) Linear 17, Langhor 8.9 Community Gardens, Pond, Undeveloped 18. Westlake 5.9 Community BMX, Gardens, undeveloped *19. Fast Gallatin. 83,0 Community Glen Lake, ,Beach, Rec Area Volleyball, Trails, Nonmotorized boating 20, N. Westridge 2.3 Neighborhood Undeveloped 21, S. Westridge 1.5 Neighborhood Undeveloped 22. E. Graf 15.4 Community (.`ndeveloped, Creek 23, Jarrett 1.9 Neighborhood 'rot Lot 2.1. .Josephine 4.3 Speciality Undeveloped, Tower 25. N. Ninth 2,2 Neighborhood Vndeveloped 26, Valley Unit :s1 16.2 Creek, Undeveloped 27. Valley Unit #2 10.9 Creek, Undeveloped *28. Fish, Wildlife, Parks Ponds 16.0 Community Fishing 29, Gallagater Park 12.2 Linear Open Space Corridor 30. Sports Complex 1.1.6 Specialty Sports Fields 31. Bozeman Swim Center Specialty 50NI Pool 32, Gardner Park 8,4 Linear Undeveloped 33. Senior Center 1.8 Speciality Building *loot City Source: City of Bozeman Parks Inventory 34 H. I�XsTol�rc. ��sou�c,,�s Historic Preservation Planning in Bozeman Significant preservation planning efforts in Bozeman first ;ot underway in 1984 when an intensive architectural survey of the community was conducted. The Survey identified over 3,000 buildings and rated them as being primar -, contributing, neutral or intrusive for purposes of the inventory. Eight historic: districts were then identified and subsequently` listed in the National. Register of Historic; places. In addition, 40 buildings (.nominated both before and after the survey was completed) are individually listed in the National Register. To roughly characterize the architectural development cf the community, commercial :and institutional development is concentrated along Main Street and r,he adjacent Mendenhall to the north and Babcock to the south, y(Wdle and tipper middle class residents built their houses on the south sickle of this commercial area from r,he early- 1880's on. Working class residents built their houses on the north side of Main to be closer to the industrial enterprises scattered ;:along the railroad tracks an the north and east sides of town. National F.egisrer_of Historic Places. Eight National Register historic districts sari: rc:presentative of this architec,turat development. The locations of these districts are shown on Figure 7, Historic Resources and Public Facilities. Residential architecture on the south side is particularly well represented. As the name implies, the Dori Torn Historic District incorporates some of Bozeman's larger and more prestisgiouti houses. Wood frame ,and brick houses in the Italianate, late QUee.n Anne, Colonial Revival, Tudor Revivr�l and Bungalow styles line the wide streets. Willson Avenue is particularly distinctive because of its wide planting strip and concrete light boles. The (,-araopy of street trees is an important sr.reetsr_ape characteristic throughout the district, blouses included in the Cooper Park historic District present more modest examples of the same styles found in the Fson Ton Historic District. Additionally, many e%arriples of later 20th century styles such as Bungalow and Craftsman are prevalent. Despite its somewhat smaller scale, the canopy of street trees is also a significant streetsc ape element in this district, as is Cooper Park itself. ° With its location immediately south of the downtown commercial area, the South Tracy-South Black Historic District contain a wide ranging representation of Bozeman architecture dating from the late 1870s through the 1930s and including ttalianate through Bungalow styles. Most of the houses <are relatively modest in scale. Like Cooper Park Historic District, which flanks Bon Ton Historic District on the other side, the scale of houses and landscaping is somewhat more modest, but equally significant. ° Two other small districts on the south side, the South Tracy Historic District and the Lindley Place Historic District, contain �5 representative examples of 19th and 20th century Bozeman residential architecture. Lindley Place is notable because of its location some distarice. from contemporary development as well as having good examples of Bozeman architectural styles. In both districts, the street trees constitute .i� significant c1hava(,toristic,. Bozeman is fortunate to have a vital downtown that rc.tairis most of its historic commercial buildings, and these are included in the Main Street Historic District. Extending between two historic hotel buildings, the commercial district is comprised primarily of two story brick buildings dating from the late 19th century through the 1930s. _although some. facades remain covered by modern aluminum fronts, the elaborate detailing of many of the buildings remains or has recently been uncovered and restored. Examples of Italianate, Rom-';' aesyue, various historic revivals and Streamlined Modern interspersed among simpler buildings. ° As mentioned, the area north of downtown historically provided more modest hoop ing. Although many older houses exist in the area more of them have been severely remodeled and many more post-194C structures are interspersed. As a result of this mined appearance, the only historic district, Forth Tracy Avenue Historic District, is gtrit:e small. Houses in the district are comparable to those in some of the south side districts, but detailing of these 20th century Bungalows and other styles tends to be simpler. ,also noteworthy is the fact that the north side as a whole lacks the st.rr:er trees that t,lonti-ibute significantly to the character of the s011t1l vide historic districts. " The Brewery Historic District is comprised. of five buiidirigs associated with the Bozeman Brewery owned and operated by the Lehrkind family. Foremost among the buildin ;s is the brewery itself and a, later bottling plant. These :pimple brick inriustrial buildings are typical of early industrial b4,tildiri;s in the community. The three residential structures represent a, range of styles from elaborate Queen Anne to simple Bungalow. The approximately 40 buildings indi,, idually listed in the yr,iktiorlal Register include residences, institutional buildings and indi.:strial buildings. Residences are primarily on the north side of town where the only district is small. In the downtown area are several historic churches, mostly to the south of downtown, and several public buildings, the Carnegie Library and City hall, that are north of whin. also listed individually are industrial buildings that include railroad depots, sprain elevators, a dairy and var'ios,js factory buildings, all built during the first few decades of the 20th century. The historic districts and buildings now listed in the National Register a(,(- representative of Bozeman's historic architecture. Because of the comprehensive nature of the architectural survey, district boundaries have been drawn to include as many primary and contributing buildings as possible and still meet the National Register criteria. In the future, districts may be 36 expanded and more individual buildings may be nominated to the National Register as the community sees fit. Consideration should be given to creating additional districts on the north side, particularly as more recent buildings come to have potential significance and as substantial rehabilitation activity or_cs,rrs. istoriG. Preservation Advisory_ Board. Bozeman's Historic preservation Advisory Board was created by ordinance in July, 1985 to make the City eligible to receive Certified Loral Government (CLG) funds from the State Historic Preservation Office. The ordinance meets the minimum requirements for the certification by the State Historic: Preservation Officer, which, in turn meet the minimum federal requirements for CLGs. Included among these requirements are. forming a preservation board to advise the city; maintaining a system for survey- and inventory of historic and prehistoric resources; using the: National Register criteria as a basis for local designation; participating in the National Register process by review and comment on nominations for properties and districts within the jurisdiction; reviewing planning programs that relate to historic preservation; and participating in efforts to carry out the National Historic Preservation Act and the State Antiquities Act. The guidelines recommend but do not require that design and demolition review be among the powers of the preservation board. Bozeman'.-, preservation ordinance includes all of these requirements, so the community is presently one of eight C'LGs in Montana; the creation of the half- time Historic Preservation officer staff position has entitled Bozeman to a larger share of the state's CLG allocation each year. The 'Preservation Board's powers are such that its role is entirely advisory-. In terms of program, the ordinance has set out several directions for the board. One is to participate in the state's historic preservation process by reviewing and commenting on all National Register nominations and compliance review activities within the City. Another is to maintain and expand the inventory of historic resources created by the 1984 survey. As ;a 'broader program element, the board has the power to promote historic preservation through educational programs and display's, and to ,advise property owners upon request, Voluntary design guidelines can be created to (expedite this process. A final power is to review local zoning regulations for their applicability to historic areas and make appropriate recommendations to the City Commission. Since its creation in 1985, the Preserv,�tion Board has developed educational programs for Historic Preservation week that have included house tours, sa restoration workshop, preservation displays in cicwntown store windows and a preservation awards ce mony. In 1988, a newsletter was created which is circulated to a substani !number of households and businesses. Historic Preservation Issues Preservation awareness has grown significantly since the program was initiated in 1984 and 1985, Downtown property owners have improved storefronts by stripping off the modernization of previous years. Although much remains to be done, Main Street has a healthy appearance both in terms of economic and preservation activity. 37 Within the Main Street area and for other historic buildings in c,.ommercia.l use, the major concern has been health and safety code review. Although section 104(f) of the Uniform Building Code (UBC) allows the inspector some discretion in review of historic buildings Wesignated by the National Register or local authority), the individual inspector must be knowledgeable about and appreciative of historic buildings for this to be useful. The inspector's understanding of historic buildings can be considerably increased with a new code created by UBC specifically for historic buildings. The U'ni.form +erode for B.u...i.l.dJDg_ggDser.��atian ( UCBC) has been adopted by many communities and states that now use UBC. With this adoption, Section 104(f) can 'reference the UCBC. Preservation issues in the residential, areas of the community are somewhat different. The first of these concerns is that many buildings, both inside and outside historic districts, have been altered. In fact, the architectural survey has a designation category "neutral" specifically for those buildings that would be contributing if they had not been severely remodeled, The most common of these changes are: replacement or covering of siding with aluminum siding, asbestos shingle or stucco; replacement of historic windows with sliding aluminum windows or some other window with a horizonal orientation; remov,r l or inappropriate enclosure of the front porch; removal or replacement of historic outbuildings such as carriage houses, barns and garages; and additions that are out of character. In recent years, the public awareness of preservation has increased the number of residential properties that are being rehabilitated and returned to their historic appearance. This is particularly the case in historic districts; however, even in these areas, some remodeling has not been compatible with historic character. Many properties remodeled in previous years have not been rehabilitated, and much preservation remains to be done. One of the issues that emerges repeatedly when discussing rehabilitation in Bozeman neighborhoods is that older houses do not meet current development standards, particularly- with regard to setbacks. front setbacks vary considerably from 25 feet, which is the current standard, to as little as about 10 feet. The same problem exists for rear and side yards where the houses themselves or outbuildings do not conform with the standards. As -a result., to obtain a building permit-, a zoning variance must be obt,,.iined to do anything other than bring the property into compliance. While as a general policy the City is very much in favor of granting these variances as painlessly- as possible, the need for variance does present an obstacle to preservation activity. Concern has been expressed about the demolition of sever-al olden houses in a short period of time: two houses on Willson were demolished to make way for a church parking lot; three houses on Babcock to be replaced by a fast food delivery operation. As it turns out, none of these structures was actually located within an existing historic district, but all were just outside existing districts. Bozeman's 1983 Master Plan reflects land uses that are generally compatible with historic development patterns. They residential districts (Bon Ton, Cooper 38 Park, South Tracy--South Black, North Tracy, Lindley Place and South Tracy) are primarily designated as medium-density residential with some pockets of low- density residential. The Main Street Historic district is designated commercial. Some commercial designations extending north and south from the one way pair (Babcock and Mendenhall) indicates the potential for commercial encroachment into historically residential areas. Actual zoning in effect as of August 1989 is not quite as appropriate: R-? (medium-density residential) allows single-family residential units an moderately sized lots, and this district designation is appropriate for, areas that retain this historical development pattern. Many more of the older residential districts {lien Ton excluded) are zoned for R-3 use which allows smaller lots for single-family houses and permits up to four units per property, as long as the lot is large enough. This zoning classification has allowed many of the larger historic houses to be converted into several units as well as permitting construction, of new two-, three-and four--plea units. The northern portion of Cooper park Historic District and pants of the north side generally have been zoned R-4, which allows apartment development, as well as subdivision of existing properties. The use of the transitional zone in scattered locations indicates encroachment of commercial uses on traditionally residential areas. The 8--3 Wentral Business District) zoning is entirely appropriate for the Main Street area, although these commercial uses historically did riot extend .as far to the north and south. The B-2 (Community Highway Business District) accurately reflects uses along Main to the west of downtown, however, the one-blor.k stretch included in the Cooper Park Historic District may be threatened by expansion of these commercial uses. Historically, both the north and south sides developed as primarily single- family .residential neighborhoods, equivalent generally- to the R-2 zoning. Some greater variety of use is apparent because of the occasional small commercial buildings that once were cWornFr grocery stores. chile this variety of use is appropriate to these older neighborhoods, commercial encroachment may not be. Another issue is the R-3 zoning which :allows conversion of these older houses into multiple units, which are often intended as student rousing. R-4 zoning is more clearly inappropriate because it allows development of higher density apartment buildings and, therefor:, threatens the existing older houses. z. H0.tJSINO Ste ' As previously discussed, the decade of the 1980's saw a dramatic increase, and then decline, in the construction of new housing units in Bozeman. From 1980 to 1986, multi-family housing greatly outpaced single family construction, from 1980-1988, multi-family permits accounted for two-thirds of all residential construction. Since 1987, the construction pace has dwindled to less than 50 units per year in the City, with single-family units dominating. Slower growth with more single-family units is expected to continue, especially with the expected decline and stabilization of the MSC student populations. 39 L aw..._ad Moderate Income Housing In Spring of 1985 the City of Bozeman Housing Advisory Committee s-mbrnitted a report addressing Bozeman's severe shortage of safe, affordable housing for low and moderate irLcome people. Established by the (;itY Commission in December 1982, the Committee studied the nature, causes, and impacts of Bozeman's housing problems and identified solutions to the problems. The report stressed that improvement of the local housing situation will only come through the active, cooperative involvement of all segments of the community both public and private organizations and individuals. The Housing Committee identified ten basic needs that should be addressed by the Bozeman community in order to ensure safe, sanitary, and decent housing for all its residents. The list is based upon information Compiled by the Housing advisory Committee and the application, for the 1984 Community Development Block Grant and includes, I. To develop additional multifamily housing units to meet the needs of various income levels of the community. Particular emphasis should be placed on unit size that meet family size needs. 2. To "fill-in" available undeveloped lots to increase the density and reduce infrastructure and public facilities costs. 3. To work closely with Montana State University housing and planning staffs to anticipate and plan for housing needs of the students. 4. To rehabilitate the existing housing stock to bring the units up to building code standards. 5. To rehabilitate the existing housing stock to make the units more energy efficient. 6. To develop a greaten city role in meeting Iocal housing needs, i. To institute an educational process to inform and sensitize the public to Bozeman's housing situation, 8. To stimulate creative solutions to transient and transitional housing needs through public education and involvement of community service: organizations. 9. To provide additional housing specifically geared to the needs of the elderly and disable dfhandicapped. 10. To provide additional housing and to rehabilitate the substandard housing units occupied by low and moderate-income families. Bozeman is addressing these ten basic housing needs through the administration of housing rehabilitation programs. In March of 1985, the City received a Community Development Block Grant from the Montana Department of Commerce which, among other things, financed the rehabilitation of 22 units of Rental Housing and 20 units of Owner-Occupied Housing. Approximately $145,000,00 of the $336,000.00 used for housing rehabilitation was loaned on terms of ten years with interest at variable rates. At the closeout of the 1984 40 Grant, the City Commission adopted a Resolution stipulating that the income earned from these loans would be utilized to further the housing rehabilitation efforts. As of June 1989 the Revolving Loan Fund had a balance of $66,000,00, With the continual income received from loan payments and interest accrur,,d, an average of three additional loans at a maximum of $12,000.00 each can be made per year for an indefinite ,period of time, "The City of Bozeman has also received an annual allocation of Section 8 Rental Rehabilitation Funds since 1985. These funds are used for the rehabilitation of rental units which ensures safe and sanitary housing for the low and moderate income renter. The City hes received an allocation of $60,000,00 for 1990, which will assist in the rehabilitation of approximately 12 units. The management of both programs is currently being coordinated by the City- County- Planning Office. 41 IV. GOALS, OBJECTIVES, AND IMPLEMENTATION POLICIES The beauty of the City of Bozeman, the Gallatin Val Ley, and our productive agricultural lands are valuable resources. The area is truly unique and fragile because of our high-mountain setting, However, with acidit,ional growth anticipated, some of the Valley's natural resources may be endangered. The success of the Bozeman Arr�,a Master Plan will come about through protecting our natural beauty, pristine environment, and healthy agriculture. The goals, objectives, and implementation policies necessary to maintain that environment are further described in this section of the Bozeman Area Master Plan. A. ENVIRONMENT, AESTgETI L ND NATURAL RE,Q RCES GU L 1 . IDENTIFY ENVIRONMENTAL CONSTRAINTS AND PRESERVE AESTHETIC RE90URCES OF THE BOZEMAN AREA. CJb, as,t i yes: a. Work with City and County Staff, MSG, State agencies, Federal ,agencies, and advisory groups to identify areas in the Bozeman City-County Planning Area with natural or human induced hazards which limit development potential, b. Identify and protect areas with special characteristics such as stream corridors and wetlands within the ,jurisdictional area. C. Protect the safety and welfare of the public. by Identifying areas with physical. constraints (examples of such areas include floodplains, landslide-prone areas, steep slopes, fault zones, areas susceptible to severe erasion problems, fill areas, and areas of high water table ) . GCS � 2. SUPPORT THE ESTABLISHMENT AND MAINTENANCE OF GREENBELTS AND/OR OPON SPACE, INCLUDING THE PRESERVATION OF TRAIL AND OPEN SPACE CORRIDORS. Objectives: a. Investigate the acquisition and/or preservation of natural areas within the ,jurisdictional area. b. Through subdivision review, annexation, and zoning, emphasize the establishment of trails and open space corridors. GOAL 3. ENCOURAGE ADEQUATE DEVELOPMENT, MANAGEMENT AND MAINTENANCE FOR PARKS AND RECREATIONAL AREAS. Objectives: a. Provide for the creation, development and maintenance or subdivision parks and open space, including large City- and County Parks and recreational facilities. 42 b. Educate the public on thy: formation of park/.)pen space acquisition, development and maintenance districts. GOAL_ 4. ENHANCE THE QUALITY OF LIFE THROUGH RECREATION AND LFI9t1RE PROGRAMMING. Ob,)ecti,y�.os: a. Provide opportunities for recreation and leisure programs for all age groups. b. Educate the public regarding the formation of recreation districts. Implementation Policies: a. The pity-County Planning Staff and the Recreation and Parks Advisory Board will develop a park and open space plan. Recognizing that the open space and .linked trails system shown on the current ?Master Plan Update Map are conceptual in nature, a new map should be included as part of the new plan. b. The City-County Planning Staff and the Recreation and Parks Advisory Board will develop ,a Recreation Program and Facilities Master Pian. c,. The City-County Planning Staff will, investigate strategies to develop large City and County park and recreation fa.ci,.lities in accordance with the Recreation Program and Facilities Master Plan. d. The City Staff, in consultation with the Recreation and Parks Advisory Board, will design a Capital Improvements Program to develop park and recreation facilitie,; and egc.iipment. e. The Recreation and Parks advisory Board will be represented on the Development Review Committee. f. 'flee Cite ,.end County should acquire land alone; creeks, such as Sourdough, and other open Spike corridors for eventual. park and open spare development. g. By the end of 1992, the Recreation and Parks Advisor,, Board will, investigate the feasibility of forming Park Maintenance and Recreation Districts, GOAL......-5. FNCQIJRAGE AGRI CULTURE/AGRI-A( S l NESS BY PROTECTING AND PRFSERZ 'I NG THE GALLATIN 6'ALLEY'S PRODUCTIVE .AGRICULTURAL OPERATIONS THROUGH WELL- PLANNED DEVELOPMENT WITHIN THE ,JURISDICTIONAL AREA. 'W& tives: a. Identify agriculturally productive soils and investigate strategies to encourage development on less productive sails. 43 b. Protect, productive agricultural, operations within the jurisdictional area but outside the urban service area, c. Encourage more efficient use of Land t.hrouyh smoaller lot. st,ce and i.ncreaseddensiti.es throughout the urbanizinq ,jurisdictional area. il. Encourage the more aesthetic and efficient use of land thrCau�'h the establishment of an effective noxious weed control, plan. COAX 6. PRESFRVE, PROTECT AND PROMOTE HIGH QUALITY STANDARDS FOR THF BOZEMAN AR> A'$ GROUNDWATER, SURFACE WATER AND AIR. a. Encourage stream bank buffer strips for sediment, erosion and water pollution control and to protect riparian areas. b. protect ai.r quality in the Bozeman/Gallatin Valley. C. Encourage development in portions of the Gallatin Valley where caste disposal and the storage of hazardous materials pose a minimal threat to the groundwater table. d. Cooperate and coordinate with State of Montana to ensure the development and adoption of clean air ;standards and the establ i.shiment. of' a monitoring program to identify the cumulative effects of on-site storage and on-site sewage disposal on water quality. Imp,�ment.ation a. Develop zoning and subdivision controls, to protract water quality and riparian areas. b. Require storm water retention and detention facilit:ie5 where applicable for any construction, require permanent, erasion and sediment control facilities as needed for all construction, and require racilities for removal of solids and oils from storm drainage water. C. Develop guidelines for firepLace/stove ai,r emission controls , and cause to be presented to the City Commission. GOAL 7. PROMOTE, ENCOURAGE AND ENIIANCE AN AESTHETICALLY PLEASING Ob,j e.c t i veS a. Encourage area beautification thtroogh sign design and creativity that enhances the community and the surrounding environment. b. Require btisiriesses and government to install and mai.nta,i.n landscaping. 44 G. Encourage the beautification of streets, parkins lots, public lands, and if possible, state highways, d, Encourage beautification through landscaping of areas used extensively by the public, such as commercial, industrial , and governmental areas. e. Control the spread of noxious weeds in the Bozeman area. f. Develop a street tree planting and maintenance program/district. I_mplemer�tat,ion Policies; a. Pursue property exchanges and purchases that are aimed at preserving or rehabilitating historic sites, ridgelines, stream corridors, areas of natural beauty, viewsheds, and parklands. b. Require adherence to the (City and County noxious weed control programs as a condition of annexation, subdivision review and zoning procedures. C. Develop and implement an appropriate sign code. cd. Develop a City Landscape Plan e. W zoning and subdivision review to require site landscaping. GOAL Q. PROMOTE AND STIMULATE THE DEVELOPMENT OF BUSINESSES THAT COMPLEMENT OUR COMMUNITY'S GOALS, EXEMPLIFY C.'REATIVITY IN CONSTRCCTIO_ti DESIGN TO COMPLEMENT THE $ORROUNDING LAND AND AEAI.iTY OF THE AREA, AND THAT ENCOURAGE A STRONG. OL'SENESS-COMMUNITY RELATIONSHIP THROUGH CREATIVE BUILDING AND LANDSCAPE DES T GN. GOAL j, PROMOTE AND ENCOURAGE AESTHETICALLY-PLEASING CLUSTER DEVELOPMENT ON THE APPROACHES TO THE CITY. Obbjectiyea ^a. Identify entryway corridors to Bozeman inside and outside the jurisdictional area in cooperation with the City and County, b. Permit highway business only when clustered in planned oommerc.izal centers or other compact commercial nodes. I mslemeritat i.on Policies: ,.._ a. Jointly plan entryway corridors to Bozeman. h. Develop corridor development standards for the entryways to the City C. Use the Master Plan, subdivision regulations, and zoning to encourage clustered business development. 45 B. ENERGY-AND RES9QRCE,•,C NSERV TJQN GOAL 1 , ENCOURAGE INNOVATM DEVELOPMENT TO BE DESTGNED FOR MAXlME."M USE OF ALTERNATIVE ENERGY RESOURCES AND TO CONSERVE ENERGY, 2aND ()THER RESOURCES. ()k7.j.e.etives; a. Promote alternate energy resources and conserve energy, 1,,"tnd and other resourc e8, 1), Preserve and maximize solar access to existin; and future development whenever passible. C. Encourage residential development within walking distance of employment, shopping, and recreation areas. T�le,ment�atic]n Policies; a. i.'sf? the Master Plan, subdivision, and zoning regulations to further energy and resource conservation objectives. C. HISTORIC' PRESERVATION GOAL, I. PRESERVE AND ENHANCE; ALL OF THE FEATt:RES OF THE COMMUNITY'S Hnr'CAGE THAT DEFINE AND CONTRIBUTE TO GALLATIti VALLEY'S UNIQUE "QtlALITY OF LIFE". 0b,iect ivFs: _,.a. (ontini,ie to identify buildings, design elements and nittural features that singularly and collectively contribute to the historic fabric; of the Gallatin Valloy. b, Undertake programs that will increase community awarenr,ss of, sensitivity toward and practical kno,lIedge about, its heritage and the economic as well as aesthetic value of preservation. c. Encourage HPAB to conduct activities toward stimulating private and public investment in the restoratiors of historic buildings, outdoor spaces and natural features, d. Strengthen the City' s ability to foster pres,ervat:ion and con,servat ion by supporting the efforts of the Hiyt.oric; Preservation Advisory Board. I mjj1 e,me n t a t;i on : Policies � a. Direct all city agencies and personnel, when in contact wil h property owrrr;rs or lessees planning or undertaking changes of buildings, outdoor spaces or natural feattFxres in Historic Districts, upon structures constructed prior to World War II or upon more recently constructed architecturally Sig l'ei.f.ic'In t. 46 structures, to nc)tify the City Historic Preservation Officer of such change and encourage the party(s) to take advantage of the services offered by the HPO and Historic Prose rvat:iori Advisory Board. b. Direc.t all city agencies and personnel prior to and early in consideration of any change to City owned or controlled property ( :including buildings, outdoor spaces, natural features, right- of-ways or facilities) , to seek comment from the Historic Preservation Advisory Board. C. Request and encourage all other governmental agencies (school. district, county, etc. ) and general public related agencies (M.S. U. , Montana Power, etc. ) prior to and early in consideration of any change to property ( including buildings, outdoor spaces, natural features, right-cif-ways or facilities) to also seek- comment from the Historic Preservation Advisory Board. d. Amend zoning and other codes and ordinances as necessary to eliminate provisions which present or discourage preservation actions; arid, adopt provisions that will encourage and reward preservation and rr�storation sensitive to the history, design and neighboring properties. e. Adopt policies and implement measures as may be appropriate to protect the unique features of each of the several historic neighborhoods and individual historic properties. f. IssuY such proclamations and directives as needed to support, publicize and encourage historic: preservation. g. Provide financial support to t_ho Historic: Preservation Advisory Beard as necessary and prudent. D. ADMINISTRATIVE/REVIEW PROCESS GOAL, 1 . DEVELOP A CLEAR LAND USE RFVIFW PROCESS THAT PROVIDES FOR OBJECTIVE CRITERIA AND STANDARDS FOR ALL LAND .AND/OR Bt T LDING MFLOPME` T WHILE ENSURING PROVISIONS FOR ADEQ ATE PUBLIC REVIEW. Objectives: a.. Organiz; ,, the regulatory agencies and area of Jurisdiction to maximize administrative capabilities and efficiency. b, Revise and clarify land-use regulations to increase flexibility and strengthen enforcement. C. Require the City-County Planning Board to prepare a prioritized five--year long-range program of work, arrnually review the program, and prepare a program budget each year which prioritizes 47 implementation activities and identifies funds to help pay for these activities. d. Require that the program budget and long-range Program of wort: be based on the goals and policies of the adopted master plan. e. Require that the program budget include comprehensive review of the adopted master plan at least one time every five years. f. Establish an educational program to assist in ra better understanding of all parties regarding the Master Plan and its operation. I,mp,l,emen tat ion Pcilici.es: a. Develop and present a proposal for action by the governing bodies to combine the membership and functions of the Bozeman City-County Planning Board and Bozeman zoning Commission. b. Encourage the ,joint utilization of the City-County Planning Office and County Subdivision Review Office to undertake special projects. C. Develop procedures to insure cooperation and interaction between local, governments, advisory boards, public officials, and M.S.U. d. Develop and present a proposal for re-aligning the City-County planning .jurisdictional, boundary. set-�h��-�t eeirte�des-s��t�►-�}�e Flit^;;0-in irate rrJ;WnWtx.i Ayvyrr� This proposal, should reflect anticipated growth patterns in the jurisdictional, area, and ultimately, sewer and water service area boundaries. The proposal should also reflect and aesthetic considerations for entryway corridors to the Community qpA_ cau.al.ity of life_ c:onside iu,,... ... .ns for ge.az�leli,,,,- �"in9 Around Bozeman. rat ,� e. Encourage the County Commission and County residents to develop additional, citizen-initiated planning and zoning districts surrounding the present and/or proposed jurisdictional boundary. f. Upon completion and approval of the Master Plan Update, rc:-write the Bozeman Zoning Code, including: 1. Development of clear, objective, and speci f is performance: standards that guide the Planned Unit Development process within residential, commercial, and industrial areas. i.i. Development of general performance standards for identified "historical mixed-use" and "entryway" areas of the community. iii. As performance standards are adopted for each broad .land- use category ( residential, commercial, industrial, 48 multiple-use, and entryways) eliminate "T-District" regulations in that category. 9. Develop a design-compatible review process which involves the public in the conceptual stage of a development propc)s„al and which utilizes staff expertise to address detailed st,.indard's after conceptual approval is granted. h. Establish and utilize a Development Review Committee {DRC) to advise developers at both tite conceptoa,l, and detailed level of review. i . Staff :,hal.i prepare a development guidebook regarding the planning process, policies, time frames, and all relevant requiremerills. j . The City-County Planning Board shall establish a regularly scheduled orientation program for the members of the Zoning Commission , Board of Adjustment, Gallatin County Commission, and City Commission to acquaint them with the contents of the plan and to encourage adherence to the Plan's goals and objectives, E. RESIDENTIAL GOAL „1. ENCO17RAGE RESIDENTIAL, DEVELOPMENT IN THE CITY OF BOZEMAN WHERE THERE IS ADEQUATE ROAD, BICYCLE AND PEDESTRIAN ACCESS, WITH PROVISIONS FOR SHOPPING AND COMMERCIAL DEVELOPMENT'. Objective; a. Provide for residential development in and adjacent to the Central Business District and near appropriate c.commrrrcial nodes, GOA..L. ..2. ENCOURAGE CONSTRUCTION OF A FULL RANGE OF HOU9 ING TYPES, SIZES AND t:osn, INCLUDING MANUFACTURED AND MODULAR HOMES, TO ASSURE THE OPPORTUNITY FOR FUTURE RESIDENTS TO OBTAIN A CHOICE OF f,IVING ENVIRONMENTS. ObJective: a. Allow for City residential developments that: compete on a cost and style basis with rural. subdivisions. GOAL 3. ENCOURAGE )fir-A NNE D UNIT DEVELOPMENTS atiD CLL:STER RESIIDENTIAl" DEVELOPMENT TECHNIQUES THAT FEATURE A l':1R I E"L'Y OF HOUSING TYPES, DESIGNED TO ENHANCE THE: NATURAL ENVIRONMENT, CONSERVE ENEMY ,AND TO PROVIDE EFFICIENT PUBLIC SERVICES AND FAcIL.ITIES. Objective; a. Investigate the feasibility of transfer of development right-5 within the jurisdictional area. ENCOURAGE THE PRESERVATION AND REHABILITATION OF THE EXISTING HOUSING STOCK, TO PROMOTE THE HEALTH, SAFETY AND GENERAL WELFARE OF THE 49 RESIDENTS OF THE CITY OF BOZEMAN AND ITS JURISDICTIONAL AREA, REGARDLESS OF INCOME LEVELS. UM.iectiv.es:_ a. Assist the revitalization of neighborhoods in designated areas that have deteriorating and substandard living conditions. b. Residential neighborhoods shall be revitalized as funding becomes available for such purposes as renovation of neighborhood residences and buildings, public facilities, litter control, and development of parks and playgrounds. I m„ple�erita.t..i.ort Paiicies: _. ..M.. a. Make low interest loans to low and moderate income persons for neighborhood revitalization, when available. GOAL 5. RE::(:OGNIZE .AND, T() THE EXTENT POSSIBLE, PRESERVE AND PROMOTE THE UNIQUE CHARACTER OF NEIGHBORHOODS IN THE CITY OF BOZEMAN THROUGH LAND USE CLASSIHIC%ATIONS AND ZONING. Ob„jec.tive: a. Discourage conversions of single family residences to multi- family residences including duplexes, triplexes, and fourplexes) in Bozeman's older neighborhoods, where parking facilities and other infrastructure element: are .inadequate to serve higher density populations. Implementation Policies: .....w... a, To protect viable single family neighborhoods, utilize the zoning regulations to prevent inappropriate single family residence conversions and encroachments of multi-family housing. b. Evaluate zoning and subdivision regulations to ensure that the City can attract a, variety of residential development cost levels and styles. __m_ �t F. COMMERCIAL, ..I E INDUSTRIAL, AND C;O,,_NC�', , IC DEVELOPMENT GOAL . MAINTAIN AND STRENGTHEN THE CENTRAL BUSINESS DISTRICT AS A COMMERCIAL, CULTURAL, AND SYMBOLIC: (:ENTER FOR THE BOZEMAN .AREA. 0b, ectives: "TT" a. Stimulate office/business development, high density residential development, and cultural and entertainment facilities in and near the central business district (CBD) . b. Encourage, maintain and enhance the growth of Rozeman as a regional retail, service and shopping center. 30 ]mp l emgntatOXt Policies: a. Develop regulatory and economic incentives to stimulate higher density development near the CBD. GOAL 2. PROMOTE AND STIMULATE THE DEVELOPMENT OF THE BOZEMAN :AREA AS A CULTURAL AND RECREATIONAL CENTER, Object ive: a. Encourage and support :activities, such as the proposed prLrformin Arts Conley, which will enhance the cultural and recreational opportunities within the Bozeman area and throughout Gallatin County. GOAD 3. CONTINUE TO SUPPORT THE LONG-TERM ECONOMIC DEVELOPMENT GOALS OF THE COMMUNITY, AND SUPPORT THE PROGRAMS NECESSARY TO ACCOMPLISH THESE GOALS. Oh.i ec t i ve: a. Encourage and support activities which will implement adopted strategic economic development plans, and coordinate said plans with the area's land use planning efforts. Implementation Policies: .., a. Develop a procedure in cooperation with the Gallatin Development Corporation, Chamber of Commerce, community design professionals, and City-County Planning Staff to guide new bus.inesscs through the review process. GOAL 4. ENCOURAGE IMPROVEMENT OF THE APPEARANCE OF EXISTING DESIGNATED INDI;STRIAL AREAS .AND ENCOURAGE TWILLING OF DESIG'.NATED INDUSTRIAL AREAS. GOAL 5. ENCOURAGE ECONOMIC DEVELOPMENT ASSOCIATIONS TO PROMOTE THE EXPANSION OF EXISTING BUSINESSES .AND THE LOCATION OF NEW BUSINESSES THAT WILL PROVIDE A VARIETY OF INDUSTRIAL AND COMMERCIAL ACTIVITIES, PROVIDING TI[EY ARE HARMONIOUS WITH OUR :NATURAL ENVIRONMENT. Objective: a. Encourage the economic development associations to 00cadinatre planning issues between local businesses and the City of Bozeman and Gallatin County through publics/private assistance and awareness programs, GOAL 6. SUPPORT THE GROWTH AND STABILITY OF TIME UtiIVERSITY. Ob.jecti,g: a. Encourage the City, County and University and the adjacent neighborhoods to cooperate in coordinating economic goals and long-range planning. 51 b. Support legislative efforts to maintain adequate funding for Montana State University. Imp lemeritation Policies: a. Establi,shcriteri.a to identify mixed use neighborhoods, b, Develop mired use overlay zoning regulations and P.U.D. standards for neighborhoods which exhibit an existing mix of commercial, industrial , and residential uses. G. PUBLIC EACILITLE5 GOAL 1 . ASSESS, PLAN FOR AND PROVIDE ADEQUATE 'MUNICIPAL WATER SUPPLY -AND CENTRAL SEWER SERVICES TO MEET FUTURE NEEDS OF THE BOZEMAN URBAN AREA, AND ENCOURAGE AND PROMOTE THE CONSERVATION OF WATER. Implementation Po ivies: a. Develop and implement. comprehensive municipal water development and central sewer service plans, including identification of specific actions to be taken and a public: information program. i . The water development plan shall identify sources of water to augment those presently used. Sources to be considered shall include usable water rights acquisition, ground water development, water conservation, water storage, and other possibilities. The plan shall further inc-lade a program to examine, repair, and construct water supply facilities as needed, and shall propose a schedule for such activities, ii . The sewer system plan shall include a program to examine, repair, modify and construct storm and waste sewerage delivery, processing and disposal facilities for the future, and shall propose a �c.hcadule for such activities. b, Develop a capital improvement plan to implement the water and sewer development plans. c. Revise t.hc-� bnurrdaries of the Bozeman 1,rban Growth Area to reflect realistic economic and c,�ngi.neering constraints for water and sewer system needs and facilities. d. Revise annexation, • oning .and subdivision policies and regulations as necessary to conform with the Bozeman Urban Growth Area. e. Develop land-use classifications that are consistent with the Bozeman Urban Growth Area boundary, and insure that adequate sewer and water service facilities are available for current and projected future demands. 52 GOAL 2. PROVIDE FOR ADEQUATE SOLID WASTE DISPOSAL FOR THE JURISDICTIONAL AREA WHILE REDUC.'ING THE NEED FOR SANITARY LANDFILI. AND THE DEMAND FOR NATURAL RESOURCES. Tmnlementati�n Policies: a. Develop and implement a comprehensive solid waste disposal plan for Bozeman and the jurisdiction which recognizes and encourages recycling, and which includes identification of specific actions to be taken and a public education and information program. i. The solid waste disposal, plan shall identify sources of solid waste and assess demand for solid waste disposal area; shall explore alternative waste disposal strategies with other communities; and shall develop an implementation strategy for the jurisdictional area. b. Develop a capital improvement plan to implement the solid waste disposal plan. GOI� _M3� ENCOURAGE DEVELOPMENT TO OCCUR WITHIN THE BOZEMAN URBAN GROWTH AREA. Implementation Policies: a. Investigate expedited review procedures, cost-sharing opportunities, flexibility in standards, and other methods to increase the feasibility of developing within the Urban Services Area. GOAL 4. ENCOURAGE DEVELOPMENT OF NEWLY PLANNED RESIDENTIAL AREAS IN LOCATIONS WRICH MINIMIZE THE COST AND MAXIMIZE TIME BENEFIT OF PROVIDING PUBLIC SERVICES AND FACILITIES. Imp gnentatiou Policies: a. Designate more single family residential areas in the Bozeman Urban Service :area through zoning and subdivision regulations and planned, phased extension of facilities, b. Adopt zoning standards and procedures which encourage developments that make efficient use of facilities. GOAL„ 5, THE COST OF PROVIDING PUBLIC FACILITIES FOR FUTURE DEVELOPMENT SHOULD BE BORNE, ON A FAIR SHARE BASIS, BY THE DEVELOPMENT THAT REQUIRES THEM. 33 Implementation Policies: a. Develop a technique to identify, evaluate, arid_ assess the fair share of development impacts, including impact fees and devr.4sper zeFi erg rj her o�r,i.rrc5that: may be reg,uired f,pt� Sfie development of the site, GOAL 6. PUBLIC FACILITIES ( BUILDINGS) SHOULD 8F PLANNED FOR FUTURE CAPACITY, LONG-TERM SERVICE, DEPENDABILITY, AND SAFETY. Implementation Policies: a. Develop and implement a comprehensive public fatalities plan which includes an assessment of future capacity, long-term service dependability and safety. b. Develop a public facilities Capital Improvement Plan to implement the public facilities plan. c. Review the Bozeman and Gallatin County Subdivision Regulations, and update as necessary to continue good quality public facility planning and construction standards. GOAL_7.. ENCOURAGE IN-FILL DEVELOPMENT WHERE APPROPRIATE TO ASSURE MAXIMUM USE OF EXISTING PUBLIC NTILITIES WITHIN THE BOZEMAN URBAN SERVICE AREA. AND MAXIMUM COST-EFFICIENCY TO THE CITY AND TIME USERS. a. Adopt zoning procedures which encourage cluster developments that make efficient use of Wi l ities, and encourage development where facilities can be economically provided. H. TR NSPORTATCONAIRCULATION GOAL 1._ DEVELOP A TRANSPORTATION SYSTEM WHICH CAN ACCOMMODATE BOTH CURRENT AND PROJECTED GROWTH PATTERNS, TIED TO A FUNDING MECHANISM FOR EACH OF THE FOLLOWING OBJECTIVES. ObJ ect i.ves: a, Combine the Technical Advisory Committee (IAA and the Policy Coordinating Committee (PCC) and coordinate their recommendations with the City and County Planning Staff; and. Citizen representation. b. Reduce through track traffic through downtown Bozeman; c. Cooperate with Montana State University to solve traffic related and parking problems in and around campus; d. Provide a plan for safe bicycle movement, including designation of appropriate bicycle routes, development: of a 54 comprehensive bicycle Safety program, and construction rsf an off-road bicycle trail system along open space corridors. e. Provide for safe pedestrian walkways, whether Paved or unpaved. f. Develop the arterial roadway system at the edge of existing urban development to relieve congestion on the inner portions of the City's arterial system. g. Provide a plan for designated bicycle lanes on the streets of Bozeman which will assist in facilitating traffic~ flow, especially between the Central, Business district and the campus of ;Montana State University. h. Recognize the fabric of existing neighborhoods and provide a means of maintaining existing neighborhood characteristics in the transportation planning process. Implementation LO 1.i c i_es .�...,.,,.� a. Develop a prioritIzed Capital. Improvements Program to construct and maintain the transportation network as specified in the transportation plan. b. Review the current, transportation plan and update to provide enhanced vehicular, bicycle, and pedestrian circulation. c. Develop and consider alternative implementation strategies to fund construction of the Transportation Plan. d. Use subdivision and zoning regulations and PUD st,:indards to minimize the number of approaches onto designated collectors and arterial highways. 55 V. MASTER PLAN RLEMENTS Based on the preceding inventory, analysis, and establishment of goals and objectives, this section of the document sets out, the major master plan elements oeeded to ,achieve a future vision for Bozeman. Whi to l vev ious sections of the plan addressed ra. wide variety of topics, this section focuses on .just tour critical, areas needed to accomplish t-he major recommendations of the Elan. These four areas are; ° Land Use Parks and Open Space Transportation Historic R,eyouuroeg Preservation While related elements of the plan ,are important, such as water, sewer, and other public„ facilities, it, is these four elements which will have the most, dramatic effect on the Bozeman area, Generally, a slower growth Me is eepcaCt:ed than was experienced in the mid-I980' s, and the t:ity' s ability t.c, stay currr3nt with public facilities should not be stretched. Steady, programmed attention 6? thwe elements, as proposed in the Goals and Objectives, should allow the City to keel, Dace with needs. However, to preserve and enhance the essential dualities of life in Bozeman and the Gallatin Valley , the City and County must take actions in land use, open space protection, transportation, and historic resource preservation to prevent further loss of the essential natural characteristics of the area,. The proposed land use delineations for the City-County Planning Area are shown in Figure 8. The land use aLement focuses strongly an 1 ) preserviog natural systems ( especially stream corridors and scenic views ) ; '') designating ample band for urI' an expansion :and Kf.il.l ; and 3) delineating :a, clear Urban Growth Area where City water and sanitary gewer service will be available during the next 20 years. inside the Urban Growth Area., urban development densities will be encouraged with the immediate or «3veutua,l, provision of City services. Outside of the Urban Growth area ggIJIuraL ite;.sidentsA1__`i1Jg, no more than one dwelling unit per, 20 tier«,s will he allowed unless clustered. The major reasons for this .::approach are to 1 ) preserve the scenic character of the Gallatin Valley floor backdr Aped by the mountains; 2 ) rpducre the lens;' term potential of ground water pollution; and 31 encourage continued. agricultural use; and 4 ) to encourage the implementation of a density bonus system in the appropriate, zoning areas to further additional infi.11 development and contribute Co orderly growth within the Bozeman planning jurisdiction. The land use del i.neations shown in Figure 8 are not innaded to be implemented by }an appropriate zoning classification until, the iwces.sary infrastructure is in place to accommodate the planned land use:. In this respect, the Master Plan map ( Figure 8) represents a long rang{; vision of community development, rather than an "existing land use" map or sl;art:-term development picture of the area. This "long—range vision" concept would 5 t? also apply to certain Street: alignments and open spac(f corridors depicted on the Master plan map. Land Use Classifications Public Lands and Op?n S;Ace. Public [,ands and O;.scan Space are+ existing publi.c lands, including school sites, Montana State. University, other state and federal .Lands, community-scale parks, Sunset Hills Cemetery, and the Count N Fairgrounds. This land use classification also depicts a conceptual notwork of linear parks arid trails throughout the Jurisdictional area and beyond. However, specific: elements of the network of 1.inear parks and as depicted are not necessarily in public ownership at this time; they are shown on this Land Use. Map c7nly to illustrate the community's expressed desire for a wide range of outdoor recreation act ivi.ties in natural settings. Also, for visttal i.mpact., the open space corridors are depicted at an exaggerated sc,%le, and do not indicate actual, or proposed locations c)f possible future corridors. t rtsan Residential tnfill; Urban Residential Infill areas are areas withV..._..,......-._� in the current, City limits where residential development at urban densities is appropriate; primarily, these areas will, develop at single family densities of. 3 to 6 dwelling units per acre; multi--family resideantial development ( 6 - 15 dwelling units per acre) may be appropriate wherp; 1 , part of a mixers--use planned development, ?. fronting on or near to principal or major arterials, 3, acting as a buffcar between single-fami-ly- rcesi.donC,Jal. .and commercial/industrial uses, 4. near Montana State University, but not adversely affecting the character of existing single-family neighborhoods, or 5. concentration of residential density otl a parcel will. preserve sensitive natural resourctts such as stream corridors or stoup slopes. In certain portions of the ��rbanized area of Bozeman, densities in excess of 15 dwelling units per ac rf may be r:t.ilowed. A de?rtSity bonus of 33% above 15 dwelling units per acre may be. allowed, bo. would be available only when a proposed project exceeds established design standards for the development. Thc� density bonus may be allowed only when the prc'Ject. .i._3 compatible with adjacent neighborhood development . Building heiht and footprint configurations, superior site planning, landscape and buffering requirements would ensure compatibility with adj;�cent development. Increasingly dense developmf:ant is appropriate for e°erta.in portions of the urbanized area. 57 ° Urba,n sidential: Urban Residential areas are undeveMped areas outside of the existing City limits, but within the identified "Service Boundary of Existing Sewer System" ( see Master plan Map) . Residential development, in these areas must c011nHr_-t tc.) City services and may develop at urban densities up to sip J. ing units per acre; multifamily development (5-20 dwelling units per acre) may be appropriate under the same conditions its t.ht_• Urban Residential Infill category. $,uburjan Residential; The intent of the "Suburban Residential'' Density area is to permit the subdivision of land at a variety of densities while insuring an overall density and configuration of development that will accommodate the extension A urban services at; an affordable cost to each dwelling unit. Within the area generally delineated as "Suburban Residential" , three land development options are available: 1 ) At "Rural Residential" density of one dwelling unit per twenty acres, until urban services become available. 2 ) At. "Rural Residential-" density utilizing the sliding scale density boners procedure. Subdivision of the open spare remainder of the clustered parcel may occur when urban services become available. 3) At an average gross density not leas than one snit per acre, nor greater than six, units per acre, provided the development is designed utilizing a PUCI procedure:. Appropriate assurance must bF1 provided by the developer t.hat an equal share of the cost of all urban services that may be eventually provided to the development will be paid by every property owner within the PGD. Rural Residential Node: Rural Residential Nodes are areas outside of the Urban Growth Area where residential. development patterns have been established; development may coot i nuR at one dwelling unit per arse, or at the maximum density allowed by State Department of Health regulations. ;ever;s;. charcrc:t',eri..tics. R.u.r.al Resic'Ienl:ral. Nodes generally exhibit,...r._�,,........,.,..�......._..._. T are compose�............. .._,,.irre lot homesit•es, usually one (11 ) The-nodes •, d of 1,,,...�..._...,Y.,........_.--= -- ------- _._—_acre o r l i r fo r Lots been c r e a t e.,.d. e _t.�hen. h ra a K?- thN subdivsion .procedure or throvP^t—as vs ems are generally used, however, Commun i.t Y sys gems may be a,pprp.p z nte.cl� �n�I. r� cart" so i l co r t :ons. Small scale animal. hushandr is often _racticed.,,_ Rural nod }s are s e,p,�.i. a ------ �.......RO..,._.T_ t cases:..__ f r o arated from {�n+� another_ and in _mus,,,, „,µ„.,..._ ...,..,.....�.----......_......._. Bozeman-----by ar�ricuitural land. The intent of the Rurrd Residential Node designation is to"..provide F for the .ir�fal,l of land that is already.,,su•bd,?,v,.idecl.wi,�7to tractfi, less 58 that.. 20 acres in size, and „tc'� encourage the resubdivision of eistin arce s that are less than 20 acres JIL. Size, This category recognizes that dev to nL.o tside� the i.:rbrirl Service .� a 1.cx me n t out ---._...,. _........,.,.,,....,.�...,-- Area .has_occurred in scattered ,._c_.li�s4tery ,and .,that c)me_home..L)s s prefer rural livin,g,..__._.�z�ral nodes are intended to riiyC:rii say viewed divisions_of_land.,.w,arcf ease rlevelc men,t_ rxre5star e,s_.c>ri jKr i gu l tu,ral land, Boundaries .for �2ura1 Resiclezttial Vode:� a!; iota he 1990 �_. w._...�. dep.,. d „�c7,....t..,,..._.........,...,.,.,..,_„ Master_P.lan L',xpdar e_have boon esta}x.lkshe„ usin t;he.c.)xaractcristics a ve,,,,.ind_,-ac,-cordir19 0 thr _f�1.lcawi.rt criteria. -„STAB ENT OF RURAL RE,9 1jN__j �L NODES IN 1990 �-: ---.,,�FOR STABL,I,S1�M _.. �,..,.,..��.....�..:...:....��,...,..�,,..,,_..,....r_�,._ MASTER PLAN l.PDATE: * AJJ,Ac!�jjt._to nodes established in the 1983 Bozeman Area .Master Plan writer and sewer are ava}fak7.le either b?; on-site 'u$,t..ems or private: community systems. Areas rhar'a(z.terized by an established,pattern of „tracts less than twenty 201 acre, _ At least 50% of existing ots are built on. Access to county maintained roads or public roads maintained by i homeowners'_association. Compatibility with surrounding area. Proximity to community and public services such as schools, fire, pg1jr-e. With a mmvar,i,etE., of_pLt_ rnuti%,e dev?L;2Pmtnt _c,aption5 avai_lxb1P thrpu hour. the PIannin „M Jur;,isdic,t.i.on__ „including cluster d �'eloproents and planned i�nit_Develcxpm n_t's) it is not 'anticipated thatRu..ra._,.l,.,_.,.RPs.r...de.,..n...:t.i,wa:i,. ._._,.,,........,,.....,,...__.,,.�,„.._..v.,,..,,,..,.,......,,._,,.. ...,e, .x boundaries which:.a.r__e_.deP.acted in this 1990 Master �},se,t.eod r„_Pb1e a�wTn.o. ....,.,aht..oe��........_......,.° Rural Residential, Rural Residential areas are areas outside of the Urban Growth Area which wg}}-•axe are encoura;ed to remain andeveloped and in agricultural production. There are t:.hree (3) develQpment _options available in, the rura ,� re5ii:i€�ntial Brea. Fi„rst,,, rzsidential devolopmeAt will he permitted at a _ ensi,tV of one 1 unit perm, twentym 20 acres. Residential-deve+opment-wil} be-lreld-ta--ft-maxi m-*Toss- —€--offe- -Uft t-per-20 acres;-i'S®wevcr;-)'r�ghcr-den9rt�es-k�}�-br.-per�ttthtr,d-te-r.r�r,��t�a�e I an d- de►.wr.�ep�nen�-meettn� -�hc-frrMt�n�-nf-thts-e�t��x€ie�ra��eyrs: 59 Sect u h the subdivi .Lan review procedure, density bonuses may be available on a sliding scale basis, in accordance with Zoning provisions, where a developer controls at least t;wtaiX7 fLy.t (25) acres, ,and where the average net size of residential lots is limited to not more than one ( 1 ) acre, thereby maximizing the amount of land remaining in agricultural production or open space. Additional density bonuses may be available where the proposed development enhances and/or preserves identified community interests such as wildlife habitat, open space corridors, ridge lines, or riparian areas. ThisL�tion is intended to encpurae land reassemblage,T cluster development „ur other Planned „J±.KtIopment meeting tt�l�e _„,i�tynt of „ this classification. ^^ E,inalj, through PUD review, bonus den8ities on an.y sire parcel may be achieved where at least fifty percent. k5R%; 60-pereent open space is preserved ,and where central water anQpI sewer service is provided, and when ,anyadppted. off-s itt ' v S c_ st .rd are met. �hiis c�p.tion is intended to i m Sac:t r��o l r VAS ..., ,_. encoura,e creative planned d_evel.opments. a� -a €-site�eemmtinrtr +GauntyT-F'-1vi- SeN Vi nurSet -ar-Tt K44t- rm sehr-are sa��s�trr� -lgy-e�srtst'rtre�l�xeri-®r-easlt-�r�-�*eh-payMrnts- ComxgjQyl : Commercial areas are areas where the most intensive JOG of commercial and high density residential development', may take place; while Commercial areas may includes either commercial or multi-family development, adequate but controlled access to arterial streets is essential ; the commercial areas are intended to develop as the major commercial and service activity centers of the community; residential densities; may range to 27 dwelling units per acre. Business Park/Irtci.as..t:ri.a.l: Business Park/Industrial areas denotes employment, wholesaling and utility centers for the community; the particular type of use will be determined based upon its potential impact upon adjacent land uses; and the intensity of development; in particular, the development of business park/industrial ,areas shall be such that the least: intense uses shall be located along arterial streets, where visibility to the public: is likely; more intense uses shall to located away from the arter, iAl streets, buffered by the other uses, Land Use tmolementation, Guid:eL .nos When utilizing the Bozeman :area !luster Plan, certain interpretations will occasionally be necessary due to the flexibility and policy-oriented nature of the Plan itself, Therefore, when implementing the Land Use Plan, the following guidelines will aid in interpreting any discrepancies, extraordinary conditions, or unusual circumstances, 60 Residential Land E_'se fluidelirae.s. Tire followini' guidelines shall aid in governing all land use planning pertaining to the development of Land designated as residential in the Land Use Plan. `> Residential Density Calculations The formula for calculating gros,y r4"5ident.ial densit!, sOiall '.ie: D - du/A The formula for calculating net residential density shall be: du D - A--(c:+i+s+a) where D Residential density du - Total number of dwelling units in project A - Total site area (acres) c - Total commercial land area (acres) i = Total industrial land area (acres) s - Reserved but undedicated school and park sites (acres) a - Street. rights--of-way (acres) Allowable Net Residential Densities Urban Ressidential Infill: Single-Family D.[i /rlf,rn Multi-Family; 6-20 D.U ./acre Urban Residential: Single-Family: 0_6 i A-Wac:re Multi-Family: 6-20 D.U./acre Suburban Residential: Single-k'z�mi l�', 0 . 05 D.L./acre or Lip to 6 D.U./ac:re with bones - Rurail. Residential Node: 0-1 D.U./acre - Rural Residential. 0 05 D.U./acre, or up to approx. . 25 D.G, wi th 4;onus - Commercial: 6-27 D.U./acre ° Conditions Allowing Commercial Uses Within Residential ,areas In an effort to create graalit:y neighborhoods in Rozeman, retail and service commercial uses will be permitted as part. of the neig,hborhood pattern. However, any commercial development must be sited and designed such that the activities present will not 61 detrimentally affect the adjacent residential neighborhood. To this end, the following guidelines wi.l..l. influence the siting of commercial uses. Commercial o4es will. be Located only at the intersec:tiorus of arterial streets, or arterial and collector streets where, appropriate. ° Professional offices, retail and service commercial uses may be permitted in commercial centers, but only at a development scale Compatible with residential development, Commercial Land Use y„Guideline 5. The following guidelines shall aid in governing all land use Planning pertaining to the development of land designated as commercial in the C.and Use Plan Element. ° Allowable Land Uses Commercial activities in areas designated commercial include all, service, light manufacturing, retail, professional office uses and multi-family development, Conditions for Allowing Residential Uses Nigh density .residential uses will be allowed to locate in areas designated as commercial areas in the Land Use Plan providing; Densities may range up to 27 dwelling units per arse, However, densities greater than 20 du/acre may be allowed only for developments of exceptional or unique design. qualifications for exceptional design may include: 1. Landscape and architectural design integration with commercial development; 2. Elimination of residential parking from public: view; 3. Extensive open space to lessen density appearance; 4. Provision of recreational center(s) ; and 5. Provi,,�ion of internal and external, transportation system management techniques and design to maximize traffic: efficiency and minimize traffic congestion. Easiness Par,�11ndustrial Land Use Guide ,fines. The following guidelines shall aid in governing all land use planning pertaining to the development of land designated as business park/industrial on the Land Use Plan Element. 62 Allowable Uses Land use activities in areas designated business park/industrial include office uses, industrial uses, commercial uses and warehousing. ° Relationship to Arterial Streets Light industrial uses and business parks may be located along arterial streets. Heavy industrial uses- and warehousing activities will be located away from arterial streets, allowing the garden-type light industrial and business park uses to buffer the general view of heavy industrial activities. Landscaping All business park/industrial development shall be landscaped utilizing consistent landscaping themes that will tie adjacent projects together. Landscape easements along public rights-of- way using shrubs, trees and earth berming will be provided and installed at the time of street construction. Master Planning To assure compatibility between business park/industrial activities and adjacent sites, master planning of business park/industrial developments may be required. Additional Land Use Implementation Guide e In addition to the previous implementation guidelines pertaining to specific land use designations, the following policies shall also be used when determining land use planning issues. Buffering and Transitional Land Use When any two different land use types are shown on the Land Use Plan Map, or are approved as part of a development master plan, buffering or a transitional land use between the two land uses may be required, particularly if there is substantial reason to believe that the two land uses will be incompatible. Buffering consists of the placement of neutral space between two incompatible uses and will be required of the more intensive use where a less intensive use already exists or where the Land Use Plan shows that a less intensive use is ,intended adjacent to the more intensive use. Transitional land use consists of the placement of a compatible land use between two dissimilar or incompatible land uses. Situations requiring buffering or transitional land uses may include: 63 Lame-lot single family development adjacent to higher density single family or multi-family development; Residential uses adjacent to industrial or commercial uses. ° Buffering Techniques In cases where the above situations exist, the following techniques may be required. - Areas consisting of landscaped open space; - ,arterial and collector streets with landscaping; - Fences, landscaping, earth berms; or - Combinations of above. ° Interpretation of Land Use Boundaries The land use boundaries, as shown on the Land Use Plan, utilize natural or man-made demarcations where possible. The intention here is to create a soft and flexible approach to land use demarcation and to the differentiation of land use potentials within the overall planning area. This softer-edged approach to proposed land use distinctions will serve to create more f3e\ibility as Bozeman proceeds with creative and effective implementation to the Plan. Where softer-edged boundaries are not readily distinguishable, variations may be allowed, provided the overall intent of the Land Use Plan is not compromised. with appropriate buffering, site lighting, landscape and site planning techniques, substantial variations may be allowed without compromising or diminishing the intended purpose of the Land Use Plan. Pre--existing Nonconforming Uses and Facilities Certain land use and development patterns exist in the Bozeman- Gallatin County planning jurisdiction, as in virtually every urban area, that do not conform to currently accepted land development planning and use classifications. These "problem areas" are the result of such circumstances as changes in transportation systems, land use control procedures and decisions, or are conditions that predate community planning and zoning. This Master Plan recognizes the existence of these anomalies, without specifically identifying, locating or describing them, and shall be construed to permit and encourage any appropriate means taken to resolve or mitigate the issues and problems attendant thereto. A Master Plan amendment will not be required to accommodate land use or facility changes in connection with the mitigation of these 64 issues!; however, any such action, if appropriate, shall be reflected in subsequent Plan updates. Amendments to the , aster. _P.l&n The Bozeman area Master Plan, including the Land Use Plan Element, constitutes a land use policy statement that was created based. upon prevailing needs, the existing development pattern , underlying zoning, considerations of both man-made and natural constraints and opportunities for development, and accepted planning practices, Over a period of time, any of these variables are subject to change. Consequently, the Plan must periodically be reviewed and occasionally amended if it is to remain effective. However, amendments to the Plan should never be allowed to occur in a haphazard manner. Amendments to the Plan should only occur after careful review of the request, findings of the fact in support of the revision and a public hearing. The statutory requirements which guided the adoption of the !Master Plan shall be followed for all amendments as they pertain to ,public hearings and otherwise. The term amendments shall apply to both text and map revisions. Written findin s of fAct shall be sued which wei h the owing. criteria: 1. hrWhether the development pattern contained in the land Use Plan inadequately provides appropriate optional sites for the use proposed in the amendment. 2. That-tom Wheth_e...r the amendment constitutes an overall improvement to the Master Plan and-im-net or would be solely for the good or henefit of a particular landowner or owners at a particular point in time. 3. That WWhe.t_he.r the amendment will net adversely impact the community as a whole or a portion of the community by: Significantly altering acceptable existing land use patterns, ° Requiring larger and more expensive improvements to roads, sewer or water systems than are needed to support the prevailing land uses and which, therefore, may impact development of other lands, ° Adversely impacting existing uses because of increased traffic on existing systems, or "' Affecting the livability of the area or the health and safety of the residents. 4. That Whe.the.r the amendment is consistent with the overall, intent of the Master Plan. 65 Amendments to the Master Plan may be initiated by the City or County in accordance to the procedures set forth by State Statutes or may be requested by private individuals or agencies. It shall be the burden of the party requesting the amendment to prove that the change constitutes an improvement to the elan. B. PARKS/OPEN SPACE As in many western towns with mountain recreation nearby, the City of Bozeman has a modest park system with relatively few facilities for active recreation. A trail system to accommodate the fastest-growing recreation, activities, walking, running, cross country skiing and biking, is in its infancy. In the related area of open space protection, the City has not been able to consistently preserve the very natural assets that define the character of Bozeman. Most stream corridors are in private ownership, and are not accessible to the public, Bozeman Creek has disappeared altogether in the downtown area. Scenic ridgelines, like Sourdough and Story Hills, have been partially developed. And scenic views of the agricultural floor backdropped by the mountains are being degraded along the main City entryway corridors by commercial development. The Master Plan has taken a clear position on the importance of urban open space to the basic quality of life in Bozeman. Figure 8 illustrates the public open space and trail corridors which could form a network in Bozeman to protect environmental resources and support a recreational trail system. In addition, parks and other pubii.c lands (e. g, MSU) are also shown to demonstrate linkage opportunities. Land Acquisition Acquisition of land for future City park sites is vital in order to insure availability of land for park development as the growing community demands new facilities. parkland dedication in subdivisions will be accepted if the land is well located, is needed for the overall park and recreational program, and is physically suited for park and recreation use. Cash-in- lieu or land trades will be considered if necessary to obtain centrally- located land or land adjacent to existing parks. parkland will have higher priority than cash-in-lieu whenever possible to provide land for parks and open spaces. An important factor to consider when approving parkland dedications is the lack of useable active recreation park areas. There is an increasing demand for all parkland including practice fields and ballfields of varying kinds and an increasing shortage of these fields. Consideration must be given to the development of these facilities. Therefore, acceptance of parkland dedications unsuitable for this type of development will be carefully evaluated to insure adequate supplies of land suitable for active development. To acquire stream corridors and rights-of-way to establish a trail system, many techniques are appropriate. Subdivision and other development 66 negotiations can be successful in securing corridors. Some communities have also received some donated right-of-way or easements to get trail systems underway. More often, though, financial resources will be needed to acquire and develop continuous trail and open space segments. Easements should be acquired where less expensive than fee purchase, and easement acquisition should also include ridgelines. Maintenance an evelo me t of .Existinst City parks There is a need to improve the appearance of City arterials, especially in commercial areas, The City shall begin a street tree planting program to improve commercial area appearance and enhance existing neighborhoods. As in many western cities, street trees planted by earlier generations are being lost to age and disease more quickly than they are being replaced. There are many areas of undeveloped dedicated parklands within the City's Jurisdictional area.. These parks need to be developed in order to serve the surrounding area. Some of this development and maintenance can, be encouraged to be done by the neighborhood served by the park. Continued maintenance and upgrading of existing parks shall be pursued to insure against deterioration in plantings and equipment. Currently, the City of Bozeman is providing all of the recreation areas, parklands, and open spaces within the city limits, but the City is incapable of making changes outside the city limits that will assure the quality of recreation in the Bozeman area. A mechanism requiring all users of the City recreation facilities to help pay for these facilities is needed to assist the City in maintaining and developing a recreation system that is satisfying to us all. C. TRANSPORf_aT'IO.N The major issues related to transportation facilities in Bozeman are well documented. The primary recommendations have been developed to relieve congestion in the center of the City and to protect existing residential neighborhoods from traffic encroachment. The loop or edge arterial system long-proposed in Bozeman is the critical element necessary to solve these problems. Arterial Facilit;es Plan Figure S illustrates the major arterial system needed to support future City development, protect inner-city neighborhoods, and promote economic health and development. The major facilities recommendations include: L.00.P .Arterial System Elements 1. 19th Avenue (Aurston to Oak) 2. Oak Street ( 19th to 7tb) 67 3. Kagy Boulevard ( 19th to 3rd and Willson) 4. Oak/Highland Connection ArteK'ial System E LeAn is 1. 19th Avenue (Oak to Baxter) 2, 19th Avenue/I-90 Interchange 3. Valley Center Road ( 19th to Hwy. 84) Residential Collector and Local 5treets There has been substantial, discussion of the reasons why the County continued to experience larger numbers of single-family home development, while single-family construction in the City has slowed to almost no development. Part of the answer is the higher one-time cost of development in the City, whereas the costs of living in the County tend to be less obvious. However, part of the reason for slowing single family development in the City is the inability to deliver a product which meets the desires of consumers. Residential subdivision streets built to urban standards create the appearance of urban .living, contrary to the preference of many of those who chose to live in the Bozeman area. The City shall reevaluate its residential roadway standards to allow a more flexible approach to development. Such urban standards as street width, curbs, storm drainage, and sidewalks may not be necessary in parts of Bozeman. Relaxation of these standards, with sound design, should only be considered to promote the basic goals of the Master Plan and where future reeds and uses would not be compromised. Modified standards could thereby create a more rural residential area, more appealing to prospective residents. Other benefits of changed standards would be a decrease in the cost of development, and improved stormwater drainage mitigation and groundwater quality improvements. D. HISTORIC RESOURCE PRESERVATION Recommendations in the historic preservation plan element are intended to address many of the issues that have emerged from the inventory and analysis phase of the project. These actions fall into four areas: code enforcement, alteration and demolition of historic buildings nonconforming structures and zoning designations. Each of these will be addressed below. Code Enforcement The City of Bozeman adoption of the Uniform Code for_.$.e�ikcii�� CQr��er�atiQ (UCBC) will assist the Building Official in code enforcement for historic buildings. Applicants seeking building permits for preservation of historic buildings in commercial use have often had difficulty in obtaining interpretations more compatible with historic preservation activity. This code should assist city officials and applicants alike in negotiating solutions that promote health and safety and preservation alike. 68 AlteratAgn d mol'tion of Historic Buildings The Historic Preservation Advisory Board shall have the power to review proposed alterations to structures within areas of Bozeman deemed to have architectural, historical and cultural significance to the community. Within the area of the City designated "Conservation'", most of which was platted and built out prior to World War II, the Preservation Board will recommend steps necessary to maintain and enhance the special character of the neighborhoods and individual properties therein. Properties and districts, either within or outside of the "Conservation" area(s), that have been or are eligible to be listed on the National Register of Historic places, are designated as "Landmarks" or "Preservation Districts" shall be subject to certain mandatory requirements by the Preservation Board designed to enhance and preserve their historic dualities for the enjoyment of present and future generations. The boundaries of Conservation and preservation Districts are shown on Figure 9. Conservation and Preservation District design review procedures will be implemented through the use of "overlay" zoning districts. Properties within the overlay districts will be subject to the underlying zoning district requirements as well as the overlay design review procedures. However, the overlay district statement of intent and purpose takes cognizance of the fact that the vast majority of the buildings located within these neighborhoods and areas were constructed prior to the adoption of any zoning or other land development standards. To encourage restoration, the overlay district procedures permit substantial variations from the underlying zone requirements provided design review recommendations are followed. This quid-pro-quo process will be carefully governed to ensure overall community improvement when meeting the needs of the subject properties. Alteration of properties shall be construed, in addition to normal construction activities, to include the destruction of buildings by any means and the movement of structures into or out of the overlay districts. The overlay zoning district text calls for a one year delay of demolition of historic buildings. The intent of the delay period is to persuade the owner to seek alternative means of utilizing the property or assist in locating a buyer that will renovate the property in a manner compatible with the building's historic character. The Preservation Board will offer assistance in this effort to the extent possible. As buildings reach 50 years in age and as restoration and rehabilitation activities that meet National register criteria occur, the Preservation Board shall continue nominations to the Register and seek to expand the historic: districts. Nonconforming Structures Many of the properties in the conservation and preservation overlay districts do not conform to contemporary zoning and development standards because of inadequate setbacks or excessive height. This resulted from their construction prior to the adoption of zoning codes. In order to expand or change various aspects of these structures, it is necessary to obtain a 69 "hardship variance", a time consuming and sometimes frustrating procedure. As described in the preceding paragraphs, these problems will be mitigated by the design review procedures permitted in the overlay° districts. The principal difference in the application of procedures within the two overlay districts will be that design review recommendations on landmark or historic district properties will be mandatory, but underlying zoning requirements may be relaxed by the Preservation Board. Within the conservation district, Preservation Board recommendations will be advisory only and deviations from the underlying zoning requirements must be sought from other City boards or commissions. The latter process will be somewhat more time consuming and is likely to be less flexible. The intent of this dual procedure is to provide further incentive for conservation district property owners to seek historical district status, thus expediting the further enhancement of the neighborhoods and areas involved, Zoning De.s.i_gnAtions Within the historic neighborhoods and areas of the City, as illustrated on Figure 9, zoning district density classifications shall in so far as practical, match the historic development patterns to minimize conflicts in laud development intensity and use. R-2 zoning is appropriate to most of the older residential areas and B-3 zoning is the most suitable for the historic central business area. R-3 can be appropriate to certain older areas that have a substantial number of multiple dwellings originally designed and constructed for this purpose. R- 4 would normally be appropriate for certain areas in or adjacent to the central business area, close to the University or adjacent to major thoroughfares when and where negative impacts on lower density neighborhoods can be mitigated or prevented altogether. In certain instances, historic buildings can be adapted for a reuses of a totally different type, i.e., industrial buildings as commercial facilities, or hospitals as apartments. This practice, when impacting a surrounding neighborhood can be handled in a positive manner and shall be encouraged as a means of protecting and preserving historic resources. Planned Unit Development (PUD) or other creative zoning mechanisms shall be utilized to accommodate this process. E. E%TRYW Y CORRI➢ORS Entryway corridors are arterial roadways entering the community- that introduce both visitors and residents to Bozeman and the Gallatin Valley. Entryway corridors are a community's "front door". It is acknowledged that the corridor's trees (or lack thereof), commercial sigrnage, and building character provide the first, and oftentimes, the most lasting impression of the entire community. This impression is much greater than simply how "pretty" the community may or may not be. Strong subliminal messages are delivered to the travelling public and to local citizens alike. The community's economic vitality, its willingness to insure the safety and well being of its citizens, its degree of concern for the natural environment, and the respect citizens have for one another are but a few of these messages. Therefore, the entire community, and most specifically its governing bodies, have the right and the responsibility to guide the development and redevelopment that occurs along entryway corridors. 9Q A community's arterial corridors have one fundamental and overriding purpose, the provision of safe, efficient means of moving people and goods. They are paid for by the .general public through local, state, and federal taxes. Because they carry vast amounts of traffic, they are magnets to commerce. The right to do business along these corridors is well established and, indeed, Main Street America, resulted from this practice. However, the right to destroy the usefulness of the roadway's capacity to move people and goods, the right to endanger lives by unrestricted access and egress or signs that obscure traffic signals, regardless of how many time this unfortunate circumstance has occurred, has never been accepted as an absolute right. This Plan defines two classes of entryway corridors which are delineated on Figure x9, an element of the ~taster Plan Map. The Class I corridors include all development wholly or partially within 660 feet of the centerline of certain arterial routes on the periphery of the City within the Jurisdictional areas. The Class 11 corridors include all development wholly or partially- within the lesser of 330 feet or a city black of certain arterials within the City. t ithin these corridors, certain additional design review procedures will be implemented through zoning that will provide a means of guilding future development, and redevelopment of existing uses, when appropriate. Depending on the class of entryway and configuration of existing streets, land uses and buildings, more extensive landscaping, fewer points of access, or greater concern for building character than called for in underlying zoning may be required. Conversely, the design review process will afford the opportunity to address the special features of each property and facility on a case-by-case basis. It shall be the policy of this Master Flan, together with its implementing ordinances and regulations, to permit ..and encourage the flexible ;application of all underlying standards and requirements in a manner which will best address the overall intent and purpose of the Plan, implementing codes, and parts thereof. 71 vi. rMPLI&MNN'TATrON A. CAPITAL IMPROVEMENTS FUNDING ST .-_ EGA The purpose of this discussion of capital improvements funding strategies is to provide the City with parameters to guide capital improvement project programming and prioritization. Just as the Master flan itself presents an image of what the City wants to be at some point in the future, so too, these strategies describe the overall improvements that will be necessary to achieve the Plan. Capital improvements programming (CIP) is the multi-year scheduling of public physical improvements based on studies of available fiscal resources and the choice of specific improvements. Capital improvements are typically defined as large construction projects such as streets, water and sewer extension or replacement, bridges, libraries and recreation centers. In smaller communities, major equipment such as fire trucks may also be considered capital improvements. Regardless of the definition, capital improvements should have a relatively long-term life .and usefulness. In most local governments, the capital improvements program is enacted as a guideline for spending, and each year a capital improvements budget is authorized by ordinance. Bozeman has had an established capital improvements program of sorts for several years and, of course, both the City and Gallatin County have always made capital expenditures, with or without a formal CIP. This section will present background on capital improvements funding and programming of the City of Bozeman and Gallatin County, It will also summarize capital funding options, The section will conclude with capital funding strategies that will provide a context for setting priorities to schedule major capital construction projects, whether included in the existing CIP or not, given the ~taster Plan recommendations and financial ccnstraints imposed by Montana municipal finance laws. Bozeman Ca it,1._Jm.provements Programming Until this year, City budgeting for capital improvements was not formalized. At the end of each fiscal year, a portion of the budget surplus was transferred into the capital improvements fund for the coming fiscal year. The 1990 fiscal year budget is the first in which a specific transfer amount ($100,000) is set out as a line item of the budgetary process. Capital improvements are paid for either from a general fund allocation or from utility enterprise funds. The CIP currently in force covers the fiscal years 1989 through 1993 and beyond, with projects rated as "critical', "essential„ or "desirable", The document details equipment purchases as well as specific construction projects. The FY 1989 capital improvements budget of S2.3 million includes several small projects: swim center remodeling, a band shell, and design of several street improvement projects. The largest projects are designated for water, sewer, wastewater treatment and garbage services, 72 Major capital improvement projects programmed for FY 1990 and beyond are shown in Fable 8. Major projects for the purpose of this analysis are defined as those estimated to cost $100,000 or more. Funding sources for the estimated $25 million in improvements vary, and, in fact, few of them actually have funding appropriated or even scheduled. Sewer, wastewater treatment plant and water projects will generally be funded through the City's utility enterprise funds or through federal and state grant programs. The most costly roadway improvement, the North 19th Avenue interchange, would be fended through the federal and state interstate highway (4R) program if funds are made available. Major street construction and widening projects have been in the past, and will continue to be, funded primarily- through Federal Aid urban (FAU) system channeled through the state highway department for those major arterials on the system. The portion of 19th between Durston and Oak is designated as the city's number- one priority for FAU funds. Street improvements, which include sidewalks, curbs, gutters and storm drainage are also proposed for several of the street widening projects. Funding sources for street improvements and storm drainage remain to be identified. Several general fund and enterprise fund projects will be on-going with an annual appropriation. Gallatin County Capital Improvements Programming Gallatin County schedules major capital improvements throughout the unincorporated area, and only a portion are made within the Bozeman urban influence area. Because the County provides no utility services, its primary capital construction activity is roads. The Montana Department of Highways is responsible for upgrading and maintaining primary roads, which are the designated U.S. and state highways -- U.S. 191 (Bozeman to Yellowstone); U.S. 86 (Bridger Road); U.S. 10 (parallels 1-90); Montana 291 (Jackrabbit Road); and Montana 289 (Norris Road). Secondary roads are maintained by the county and improved with funding from the Federal Aid Secondary (FAS) program. Improvements to Springhill Road, 1Cagy .Boulevard, Oak Street the extension of 19th Street, coupled with development of the 19th Street interchange and the improvements to Valley Center Road, all within the urban influence area, are scheduled for construction with FAS funds. The County does not have a parks and recreation department, but it has been collecting fees from developers in accordance with subdivision regulations. This parks and open space fund now has a balance of about $45,000. Gallatin County adopted an updated Open Space and Recreation Plan in December, 1989. The Plan will contain guidelines for the use of park funds. These guidelines will begin to address the needs for the additional parks, recreation and open space amenities that are now emerging within the urban influence area of Bozeman, and could tie into Master Alan recommendations. Capital Funding Sources The funding options available to municipalities in Montana has always been limited. In 1986, the voters of the state approved Initiative 105 which further restricted the options by, in essence, capping a local government's property tax levy (millage) at 1986 levels. focal property tax revenue can increase only 73 if property or value is added through :new Construction, remodeling or change in cLsasification (e.g. from farm land to subdivision) and even then it is taxed at 1986 millacge. No adjustment for inflation can be made either in the dollar value of the property tax levied or in the value of the property'. In essence, a community's property basic tax revenues will remain at 1986 74 a, Cd TJ C C1 C3 G1w r. 7! G7 tiLn C tw� r• c � c� ch ch N ra rn ,l cl -� C77 Ch tso O -M rn vsvY rne7mcnmmmCs0mm cn0000 � McnayC) ;sC, Gw QED CL a_ G: 41 Cz li, Cz� U. 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"" m a� d 11 .� 11 Cr3 4. IL 6�. L DU Fr I UaiU � .wA ., cwjLl. Am � '� OI zez :�. � vU] r " 0 z4 w L4 �4 I ` EI j �Ll ZL u- � a� aLo a © © I IV tn v _ � ctl > rn ce U ti J '� J W Gx7 G:7 R1 u�i a� v • x.Y y � �M W Y � � I "G D p W O U V Cd r CL z > v at tic� fy-c •� r~ a � c� o n €, x 0 cz� C y � 6. 9 Gti InZ v y y 0 0 r w w 4 -0 ji to levels unless and until the legislature broadens local government financing powers through enactment of a sales tax or other such mechanisms. Special assessment categories such as improvement districts, repayment of bonded indebtedness and tax increment finance districts (among other minor exceptions) are exempted from the limitation, Revenues to the City of Bozeman in the 1990 fiscal year are estimated to be about $8.6 million. Of this, about $3.0 million will be received from property taxes based on a Citywide levy of 127.06 mills and a mill value of $2:3,586. About 66 percent of the revenue will go to the general fund and the remainder to special revenue and debt service funds. ,mother $1 million comes from motor vehicle fees and taxes. Some portion of gas tax monies is being used for street improvements and maintenance. Other revenue include licenses and permits, intergovernmental transfers and charges for services, primarily utilities. Excluding special and proprietary funds, the City's general fund revenue is about $4.1 million of which $2.2 million is obtained from property takes. Capital funding captions are somewhat limited given the fiscal constraints imposed on cities and counties; nevertheless, several options described below are available: Funds within the budget can be diverted from other uses, and then used for capital improvements on a pay-as-you-go basis or ,accumulating reserve funds for several.years to pay for larger projects. This is a part: of the annual budget process and should be considered when determining the share of the total budget which can be devoted to capital improvements. ° The local government: could charge for more current services thereby freeing up some monies that could be diverted to capital improvements on a pay-as-you-go or reserve fund basis. This is likely to produce only minor additional funds and even then only after considerable public discussion and staff evaluation. Gonerial obligation bonds could be used to finance capital improvements such as parks, open space, roads and public facilities with approval from the voters. The bonds would be repaid through a special property tax levy paid into a debt service fund for the bond period. The Cite of Bozeman has two such bond issues now being repaid: bonds for the $900,000 senior center will be repaid in early 1.994 and bond for the 51.3 million library will be repaid in mid 2000. Both bonds were issi.ted for a period of 20 years during which time an additional levy was collected, about two mills for the senior center and five mills for the library. As each bond is retired, property taxes will be reduced; however, small amounts of motor vehicle fees and taxes will be available for other +ases. Each local government has a pre-set bonding capacity based on its revenue stream, but even more restrictive is the voter's' willingness to approve a bond issue representing anything more than a modest increase in taxes. This is the most likely vehicle to provide any significant increase in capital expenditures. ° A local option Gas Tax could be instituted. 77 ° The City and County could, develop a system of requiring Impact Fees and/or Development Exactions through the Development Review Process, Initiative 105 exempt$ various other financing mechanisms from the 1986 cap. Among these are special improvemenrr districts and tax increment finance districts. Special improvement districts are frequently used in new developments to pay for infrastructure, thereby- allowing the benefitted property owners to pay for these improvements. Tax increment finance districts are based on a property tax increment created by new construction within a specific area. Given the 1986 value for property, any increment is likely- to be small and collection of this increment is a local government's only hedge against inflation. Generally speaking, population and employment growth projected for Bozeman is not great enough to generate new construction that would keep pace with inflation, so the City is even less likely to propose a tax increment finance district except in a very focused manner and for specific projects designed to create the increment itself. Local government can also levy special assessments to pay for public improvements on private property; such as curbs, gutters, sidewalks and street trees. The cost of the improvement is a one-time charge to the property owner based on his portion of ownership, frontage or other equitable measure. In the County', Rural Improvement Districts can be and have been established to fund specific improvements. Other sources of funding for capital improvements include the federal and state governments and private sources. The federal government in particular has long been ,a partner with local government in construction capital projects. although the federal government's role has been reduced in the last few years, it is still an important source of funds for transportation, water and waste treatment related facilities. States have also participated in funding improvements, particularly streets and highways, but to a lesser extent than the federal government, Most federal funds are made available on an application basis and selection is �:ompetiti�'�, such as EPA funding of the w:-istewateL* treatment plant. Gallatin COUnty also receives about $500,000 per year from the Bureau of Land titanagement and the U.S. Forest Service in lieu of taxes based on the, "Mount of and production on federal land in the County, about half of this has been directed toward capital construction projects although not .�s vet for road construction. Federal funds are an important source for road improvements and construction. The Federal -kid Primary (FAP) funds are allotted to state highway departments for improvements to design,,,Ated state and federal highways. The previously mentioned Federal :girl Secondary ( FAS} funds are assigned to improve designated roads in rural areas, and the Foder,.;l Aid 'Urban (FAC.;) funds are for improvement of urban arterials. Currently, Bozeman receives about $275,000 per year in FaL funds and Gallatin County about $300,000 per year in FAS funds, and each local government may accumulate the funds over a period of years to pay- for a major segment of road construction or improvement. Gallatin county has committed its funds through 1990 for improvements to Springhill Road and intends to accumulate the 1990 through 1996 funds for Valley Center Road. The city- has prioritized its FAT: funds for the Kagy--to- 19th and North 19th (Durston to Oak) improvements, both of which are appropriate and recommended improvements for the implementation of the Master .plan. 78 Private sources are also available, generally not in the form of cash, but in other important ways such as land dedication for right-of-ways and piAblic facilities and participation in special improvement districts. It is iap to the local government to orchestrate these dedications and improvements in such a way as to contribute to the master plan. (7apit4l Improvement Projects The vision presented in the 'Master Plan requires that investments be made in the community in the form of capital improvements. These improvements Pell into three general categories: 1) water and sewer, 2) roads and streets, and 3) parks and open space. City officials have indicated that public facilities sUch as the library, city hall, senior center and recreation facilities are adequate for the foreseeable future and will not require major improvement. Water and 5ewer.__Impmvements. water and sewer improvements are made through the enterprise funds, which, in total, have a projected budget in fiscal year 1990 of $4 million. _bout S500,000 of this is set aside for capital expenditures or debt Service. Because: the enterprise funds are intended to run ors a break even basis, these funds can be expected to pay for needed utility extensions within the city limits. Additional funding has been secured from DNRC' which will provide loans to the city for the Hyalite loam and Lyman Creek projects. Table 8 sets out utility improvements already scheduled in the CIP. Comparison with the :Master Plan reveals that extensions of several lines would be necessary to accommodate new development within the Master Plan area. Scheduling depends on when development occurs in specific areas. The capacity of the water and wastewater treatment systems is adegL.i.ate for the additional growth represented by these extensions. Streets and Roads. As described above, both the city and county utilize primarily FAU and )+AS funds to pay for arterial street and road improvements. Other improvements and maintenance are paid for through RIDS, SIDs, or gas tax and registration fees. The lntersta.t,� interchange, the single largest planned improvement in the area, will be funded through the federal and state interstate highway program, but it is not in the current five-year plan. The city is funding some of the earl,: design work to hasten approval and funding of the c:ansr,ruction. tither street construction recommended in the ;Master Plan would be eligible for the City's FAT, allocation, but the S275,000 per year will not stretch that far. Generally, the street construction and improvements represented in Table 8 will serve all areas of the city represented in the Master Plan and alleviate current traffic problems; however, several additional segrnents are heeded. The major recommendation of the Master Plan is the completion of a "loop" system of arterial around the built-up portion of the city, This would include: 1) the connection of North 1.9th to the new interchange for at least from Durston to Oak until the timing of the interchange is established); 2) completion of a northeast loop road, preferably an Oak to Highland (,-onnection, that takes the pressure of residential streets on the north side of town; and 3) extension of Kagy from filth to 19th. 79 In addition, citizens have expressed a desire for attractive gateway streets, primarily those connecting with the interstate and Yellowstone. These designated arterials should be beautified with street tree plantings and landscaped medians. To the extent possible, these beautification projects should be integrated with street construction or widening projects. Unfortunately, many of these segments are outside of the city's jurisdiction. Within the urban, influence area of the county, the most significant need is to serve areas to the west which are represented in the ''Easter Plan -.is the area of growth. The planned improvement of Valley Center would achieve this objective. Parks and OQen S2ace. Creation of additional parks and open .space is key to enhancing the quality of life enjoyed by Bozeman's residents. Neither the city nor county has scheduled any major projects for park and open space land or acquisition or improvements. One priority of the Master Plan is creation of greenways along the streams that cut through Bozeman and along the Galligator railroad alignment. These greenways would be protected open spare areas with trails for walking, running and biking. Within the developed areas of town, the community has turned its back on this potential asset. As stream segments become available as public rights-of-way (through easement, dedication or porchase), the trail system and green knelt can be created incrementally. As long as development standards are established, various groups could donate land, labor or materials to help accomplish the project. Within undeveloped areas, the greenway land can be donated when development occurs or the owner could construct and maintain each segment as part of an open space requirement. While the extent of trail acquisition and development will depend on the extent of dedication, private contributions and the level of capital improvements funding, costs ran be expected to run .as high .as $200,000 per mile. Funding Strate._gil s The capital improvement projects presented in the above section and Table 8 represent a significant capital investment on the part of the City of Bozeman and, to a lesser extent, Gallatin Count-. .All of the projects represented will have to be carefully staged through the capital improvements programming process as the citizens and City government agree on priorities ariLl filndinrg mechanisms. Funding for capital improvements is very- limited. The city' should continue its capital projects set aside each year, The fund can then be used for smaller projects, those costing less than $100,000. Larger projects would best be funded through a general obligation bond issue for streets and parks and open space. Some portion of the future projects could .�lsa Come from the continued use of current funds for capital improvements once the currently prioritized projects are complete. Such funds include, For the City: FALi $275,000/year Gas Tax $315,000/y ear (about 33% to capital projects) General Appropriation $100,000/year 80 Fort � .you nty: FAS $300,000/year Gas Tax $185,000/year (mcstly maintenance to date) SLR(/USFS $500,000/year (portion available for capital projects) The extent to which these funds can be supplemented with a capital improvements bond issue to implement the major elements of the Slaster flan will depend upon the mill levy and geographic coverage of such a program, A road program could be done, as now, separately by the city and. the county or as a countywide measure since a great portion of the residents of the unincorporated county live in close proximity to Bozeman, The institution of maintenance districts, particularly for streets and the upkeep of public parks, would allow for more capital allocations for planned improvements. In order to effectively implement the Master Plan, a City-wide street maintenance district is currently being considered. Likewise, the parks and trails components connect and weave through portions of both the city and unincorporated county and, wherever located, serve residents at both areas, so a joint city-{county program (and funding) would be justified. Of course, the size of any bond issue and the capital construction program supported thereby will depend on the public's willingness to authorize such a program which, in turn, will be influenced by the mix of projects covered, By way of illustration, the chart below shows the level of capital improvements that could be supported by a band issue with various mill levies and coverages. Annual Sued Qty_wide Issue Amount Capital ExRenditure 10 Mills $236,000 $2,216,000 20 Mills $472,000 S4,431,000 Count.yw de..xssUe 5 Mills $328,500 53,084,000 10 Mills $657,000 $6,168,000 The level of supportable expenditure in the above illustration is based upon a 20-year bond at 7.2 percent with 10 percent of the proceeds used for costs of issuance and reserve requirements. The mill levies in the illustration would result in tare increases ranging from 1.7 percent to 5.0 percent of the total tax bill for an individual property. While sales taxes are not allowed under Montana laws, it is worth noting that in many communities, citizens have supported a dedication of sales tax revenues to parks and open space programs. This tax is in many ways preferable and more productive than a property tax (one major advantage is that it collects tax from tourists and other nonresidents). As a rough indication of productivity, a one-half percent sales tax on nonautomotive retail sales in Gallatin County- would support a Capital Improvements package of about $17.3 million, three to eight times the amount described above for property tax supported projects. 81 B. REQUIATP TEGY First and foremost zoning has become a governmental process for controlling and regulating the use of land within a community for the purpose of protecting community values. Many professional planners and elected and appointed public officials involved with zoning will argue that zoning has, as its roots, the following two purposes: ° Protecting and maintaining property values, and ° Implementation of the Community Master Plan While this premise is to a great extent true, zoning has evolved well beyond being merely a tool that is used to guide orderly, physical development of the community. Zoning has developed into a process whereby communities not only direct and regulate the physical order of land patterns, but also apply more intangible community goals and values to property development, such as protection of the environment, preservation of the community's past and scenic appeal and, often as not, the social and moral values of the community. Zoning as a. process has become more complex than mere consideration of the relationship, by location, of differing land uses. It is now widely accepted that the zoning process encompasses consideration of community values and protecting property values; and it encompasses master planning (community) objectives when used to implement the land use plan. In short, zoning has evolved from a legal technique for regulating land development in the interest of protecting property values to a complex governmental process that has as its objective the promotion of the goals, objectives and community values which have been traditionally identified in the community master plan. e Relationshi of -thp ZO jnA Process to tbg Dozoman Master Plan The Bozeman Area Master Plan has been developed to reflect community objectives and values relative the area's quality of life and image. As a reflection of those community values the Bozeman Area Master Plan can only be a guide for future growth and development. The land use plan of the Bozeman Area Master Plana reflects this "guidelines" approach. The land use plan suggests that certain areas of the community be developed in a general character, such as residential, commercial or industrial. In an economically balanced community, all of these land use types are necessary. As a guide to appropriate land use character, the Bozeman Area Master Plan acknowledges community values as more important than the developing land use patterns. For Bozeman to effectively implement its master plan and community objectives and values, a zoning process that promotes flexibility in determining land uses will be essential. Bozem,an's zoning process must be able to allow the application of community values and objectives to the land use decision making process. Zoning in the Bozeman Area must become more concerned with "how" a project is developed than "where" it is being developed. 82 The "how" of a project will always depend upon the existing and/or future characteristics of the vicinity of the project,. Because the vicinities of similar lend uses will vary, the design, or "haw" of a. project will also vary. To accommodate different design strategies through a fair and equitable process; the zoning in the Bozeman area must allow for a project ev, hi tion that is flexible, yet predictable. Therefore, the zoning process used within the Bozeman area should recognize the following: 1. Both the general public and the development industry c,,,a.n benefit from a zoning process that is more flexible in its application, yet reasonably predictable in its result. 2. The City of Bozeman should become more conoerned with the performance of particular development projects rather than their location on the Bozeman Area. Zoning Map. 3. Site design and architectural design are critical for all development and are often more important than land, use in determining a project's compatibility within a given area. 4. Through careful site design, architectural design, buffering and screening, most land uses likely to occur within the zoning jurisdiction of the City of Bozeman can become compatible with any adjacent land use. 5. Through the application of poor site design, architectural design, buffering and screening concepts, otherwise compatible land uses can become incompatible. 6. The zoning process must recognize that certain private sector objectives may be compatible (if properly planned, reviewed and approved) with seemingly incompatible adjacent uses. Project evaluation must consider compatibility on a case by case basis. 7. 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