HomeMy WebLinkAboutPolicy Discussion on possible Huffine Lane growth policy amendments
Page 1 of 5
Commission Memorandum
REPORT TO: Honorable Mayor and City Commission
FROM: Chris Saunders, Assistant Planning Director
Tim McHarg, Planning Director
SUBJECT: Consideration of planning approach for the Huffine Lane corridor
MEETING DATE: Monday, November 7, 2011
AGENDA ITEM TYPE: Policy Discussion Item
RECOMMENDATION: Action alternative 4 followed by the zoning and standards revisions proposed in alternative 3.
BACKGROUND: On July 27, 2011 The City received an application to amend Figure 3-1, the
future land use map, in the Bozeman Community Plan at the intersection of Huffine Lane and
Cottonwood Road. The City Commission conducted a public hearing on October 10th to consider the application. At that meeting the Commission decided that, prior to acting on the individual
application, the Commission wanted to consider options while discussing the larger development
pattern along the Huffine Lane corridor, from Ferguson Avenue westerly to the City limits. A
map of the general area under discussion is attached.
Growth policy amendments set basic outlines for land development policy and implementation.
Analysis of issues at a broader scale can help ensure consistency in deliberation and action to
advance overall community benefits. Analysis can also identify the need to alter implementation
tools such as zoning districts or design guidelines rather than the growth policy itself.
The future land use map is created to geographically place land uses to advance the policies and
goals adopted in the growth policy. Chapter 3, Land Use, Section 3.2 describes seven core
principles that are central to the Community’s land use goals and their relation to other sections
of the document. A copy of the chapter is attached. These seven are:
• Neighborhoods
• Sense of Place
• Natural Amenities
• Centers
• Integration of Action
• Urban Density
• Sustainability
Section 3.3 of the Growth Policy establishes land use goals and objectives. Section 3.4 creates
the different future land use designations presented on Figure 3-1 and describes each one and its
characteristics.
134
Page 2 of 5
The core principle most impacted in this discussion is that of ‘centers’ which is quoted below.
“Centers. Strengthen a pattern of community development oriented on centers. A
corollary principle is for compact development. Commercial activities in mutually reinforcing centralized areas provide:
• Increased business synergy.
• Greater convenience for people with shorter travel distances to a wide range of businesses.
• The opportunity to accomplish several tasks with a single trip.
• Facilitates the use of transportation alternatives to single occupant motor vehicles,
with a corresponding reduction in traffic and road congestion and air quality impacts.
• Enables greater access to employment, services, and recreation with a reduced
dependence on the automobile.
• Greater efficiencies in delivery of public services.
• Corresponding cost savings in both personal and commercial applications.
The center-based concept is expected to require less land for actual business activities
due to efficiency such as shared parking. It also changes the shape of the commercial areas. The center-based development pattern is supported in this plan by locating centers at the intersection of arterial and collector streets. Such locations allow not only
immediately adjacent residents but also passing travelers to support the commercial
activities. Centers are further supported through careful location of higher density
housing in a manner that provides support for commercial operations while providing amenities to residents.”
The nearest designated large commercial center is the Gallatin Valley Mall/Bozeman Gateway
complex at College Street and Main Street. This is over one mile from the Cottonwood/Huffine
intersection. Based on this distance, designation of the Cottonwood/Huffine intersection as a center merits consideration. This would provide for a focal point for development in this portion of corridor, as well as a logical westerly terminus for commercial development in the corridor.
The City has endeavored for many years to avoid the Huffine corridor from being a commercial
strip which is generally characterized by shallow depth commercial development fronted by parking lots with frequent vehicle access points from the street. Methods used to avoid a commercial strip from developing along this corridor include:
• The northern side of the corridor does have continuous commercial future land use
designation and zoning, but these parcels are deeper, varying between 600-1320 feet. This additional depth provides the design flexibility to locate parking areas and
circulation areas to the interior of developments, instead of along the corridor edge.
• The Design Objectives Plan reinforces the intended character of the corridor by
encouraging a corridor edge characterized by a shared use pathway and larger landscaped setbacks. This is reinforced by a strong building edge parallel to Huffine, which screens parking areas and defines the primary entries to developments.
• The City and the Montana Department of Transportation have adopted required access
spacing requirements which limit access to the street corridor. These spacing
135
Page 3 of 5
requirements result in primary access being taken from side streets and shared access
points, along with cross access easements between developments.
Several development proposals have recently been approved in the area and several others are in various stages of review or conceptual design. The review of these proposals has shown that the current system of zoning and design guidelines applied in the area may not be fully reliable to
produce the intended outcomes described in the growth policy. The zoning now in place in the
corridor west of Ferguson Avenue is a blend of several different zoning districts, including:
• Business Park (BP):
• Urban Mixed Use (UMU):
• Community Business (B-2):
• Residential Office (R-O):
• Residential High Density (R-4); and,
• Residential Medium Density (R-3).
The City has historically used the BP zoning designation in this corridor to avoid a strip
commercial development pattern. The land uses permitted in BP are primarily focused on offices, services, and manufacturing. The permitted uses do not include principal retail, hotel, fuel sales, or restaurants. Moreover, the standards of the BP zone are intended to produce low
density buildings within moderate intensity developments, in order to ensure compatibility with
and transitions to adjacent land uses.
Given the traffic volumes along the Huffine corridor, these BP use requirements and development standards are significant. Typical real estate economics would likely result in the
BP zoned properties developing in an automobile oriented pattern, with uses that are dependent
on or benefit from such a pattern. This type of automobile oriented development pattern and
associated uses are permitted in the B-2 zoning district, but the City has not supported extensive B-2 zoning along this corridor, based on the Community Plan goals of avoiding strip commercial.
As a result, several properties in the corridor have developed as PUDs. This approach has been
used as a compromise. The developer can vary the use and development standards of the underlying BP district to take advantage of the traffic volumes on the corridor, while the City can negotiate a higher level of site and architectural design than what would be required under the
base zoning. The outcome on the ground in the corridor has been effectively a B-2 hybrid,
particularly at signalized intersections. For example, the Valley Commons development, which
was developed through a PUD process in a non-strip pattern. In order to address this outcome, the City created a new future land use designation and zoning
district called Urban Mixed Use (UMU) and applied it to a single large property in the corridor at
the intersection of Ferguson and Huffine. This UMU designation and zoning has the potential to
implement many Community Plan goals. However, the economic climate has fundamentally changed since the zoning district was developed. As a result, some of the requirements of the UMU district are not currently feasible, such as a minimum height of three stories for all
buildings and concurrency for residential uses within each phase.
136
Page 4 of 5
The residential designations (R-3, R-4 and R-O) within the corridor are intended for higher
density. While the development of medium and high density attached residential product is
challenging in the current economy, these zoning designations make long term sense in the
corridor. If these individual sites are designed to address the adjacency to a high volume transportation corridor, the land uses and development intensities provide an appropriate
transition to single family uses and zoning that are set back from Huffine.
Finally, there is an existing industrial use, Allied Waste Services, located on the south side of the
corridor between Resort Drive and Cottonwood Road. This property is not annexed or municipally zoned. The Future Land Use Designation for the property is Residential. However,
if this property were to annex and the use was proposed to remain, it is likely to be zoned Light
Manufacturing (M-1) in order not to create a legal non-conforming use.
Additionally, there are economic development considerations that weigh into the discussion.
A component of the City’s overall economic development strategy is to “[s]upport the expansion and retention of existing businesses and economic clusters that will continue to
strengthen and diversify the economy and create higher paying jobs in Bozeman though
supporting manufacturing, especially light and specialized”. The Economic Development Council continues to administer this policy.
As shown in the implementation matrix of the adopted 2009 Economic Development Plan, the Commission desires “[a] strong and diverse economy; where the needs of business are met through sufficient infrastructure, efficient regulatory environment, adequate education and
workforce development; where economic development resources are leveraged, a more
collaborative working partnership exists between the business community and the City of
Bozeman; and Bozeman’s high quality of life is preserved.”
In this context, relevant to the discussion is the property east of the Allied Waste Services parcel
which is identified by Montana State University for long term development as a technology park.
Given the Commission priorities and MSU’s development plans, the Commission may want to
consider how industrial/manufacturing land uses might be incorporated in this general area south of the Huffine corridor. This would have two potential primary benefits, which are consistent
with the Commission’s economic development and quality of life goals to create jobs, diversify
the local economy while “[m]aintain[ing] the high quality of life that is considered an important asset to the business community”:
• Uses in this area could locationally diversify the areas that are currently designated for future industrial/manufacturing land uses within the Community Plan; and
• Properties in the area are generally large and under single ownership, which allows for
significant flexibility to mitigate potential impacts from these uses through design of
buffering and land use transitions.
Consideration of how best to address the future development of the Huffine corridor may require
changes to the growth policy, zoning districts and standards, or all.
UNRESOLVED ISSUES: These issues will be identified as the scope of this project is defined by the Commission.
137
Page 5 of 5
FISCAL EFFECTS: None established at this time.
ALTERNATIVES: Alternatives for Commission action have been identified for consideration
and discussion with Staff. These are:
1. Prepare a full subarea plan for the Huffine corridor. This would be an extensive effort
with significant time, staff, and financial resource commitments. A substantial public
process would be necessary for such a planning effort. Off-setting adjustments in other
Departmental work items would be required to make staff time available.
2. Conduct significant review of the entire growth policy to consider potential changes to
respond to the changed economic environment since the growth policy was initially
developed and adopted. This would be an extensive effort with significant time, staff,
public outreach and financial resource commitments. Off-setting adjustments in other
Departmental work items would be required to make staff time available.
3. Do not alter the growth policy beyond the current application but instead focus effort on
revisions to the implementing zoning such as the Business Park, B-2, and Urban Mixed
Use districts to increase the probability of development advancing the growth policy.
This would also require substantial staff resources and adjustment of existing work plan
priorities but could yield the greatest progress and advantage overall. This process would involve focused work with property and business owners, as well as general
outreach to the public.
4. Evaluate the growth policy for this portion of the Huffine corridor. Possible specific
areas for evaluation could include future land use designations of properties, designation
of the Cottonwood/Huffine intersection as a center, and creating alternative future land use designations. This process would involve focused work with property and business
owners, as well as general outreach to the public. This approach could most easily be
accommodated within existing work plan priorities.
5. Take no action other than to act on the current application.
Attachments:
Chapter 3, Land Use, Bozeman Community Plan
Map of corridor
Report compiled on: November 3, 2011
138
R-3
R-1
R-1
R-MH
BP
BP
PLIR-O
B-1
R-O
R-4
R-1
R-3
R-4
R-3
R-2
R-1
R-2
BP
R-O
R-3
R-4
B-2
UMU
BP
B-2
R-O
HUFFINE LN
FALLON ST GOOCH HILL RD W BABCOCK ST FOWLER AVE S COTTONWOOD RD RESORT DR ADVANCE DR S FERGUSON AVE RAVALL I S T SANDERS AVE COTTONWOOD RD MEAGHER AVE S YELLOWSTONE AVE BROADWATER ST
VI N E S T TETON AVE STAFFORD AVE LOYAL D R A L P H A DR DOGW OO D D R REDWOOD DR E GRANITE AVE MINERAL AVE SHERIDAN AVE GOLDEN GATE AVE FLATHEAD AVE N COTTONWOOD RD C A S C ADE ST
MONROE ST
LAREDO DR N FERGUSON AVE LANCELOT LN WATER LILY DR EASTWOOD DR WATERS ST
C
L
I
FDEN DR EL
MWOOD DR N SWEETGRASS AVE BEDIVERE BLVD COVER ST
LARAMIE DR RAE WA
T
E
R L
N
BENEPE ST
VALLEY C O MMONS DR PONDERA AVE BRENDEN ST GAWAIN
WAY
ARROWWOOD DR PALISADE DR PERCIVAL
PATH
ASPENWOOD DR
RAVALLI ST FOWLER AVE LegendParcelsCity LimitsZoning DistrictsClass 1 Entryway CorridorClass 2 Entryway CorridorGallatin_Bozeman_Zoning_Inner_ZonesASB1M1M2PLIR1R2R3RMHRO
RS
Huffine CorridorZoning Map
Revised:
This map was created by theCity of BozemanDepartment of Planningand Community Development
¯
1 inch = 850 feet
Intended for Planning purposes onlysome layers may not line up properly.
139
Chapter 3: Land use Intent and Background
CHAPTER 3
Land Use
Bozeman residents enjoy a high quality of life: the attractive and
functional built environment is an important component. The
citizens envision a community with good employment opportunities,
ample parks, attractive housing, and a good civic structure to meet
the needs of all citizens. The City’s mission: maintain Bozeman as
a desirable and sustainable place to live, work, and play within a
diverse and rich natural environment.
3.1 Intent and Background
The Bozeman Community Plan establishes the over-arching
direction for decisions on many aspects of the City, including land
use patterns and standards. The cumulative result of many private
and public decisions interacting with the geography of a certain
place is a land use pattern. Bozeman’s land use pattern has been a
dynamic and developing work in progress since the first settler
arrived. Land use interacts directly with many other City services,
standards and plans such as transportation, fire, water, and parks.
Many of those have independent plans which examine the details
of:
Background information Policy direction
Detailed inventories Analysis
Assessments of existing conditions Recommendations
Potential funding sources Implementation actions
This chapter does not repeat those actions but does rely upon
them. The process of developing this chapter included a great deal
of public involvement. Appendix C gives a detailed description of
the land use inventories and projections for future needs.
Population growth results in a corresponding increase in the
demand for services and residences within the City. The City’s land
use and transportation policies encourage well executed increased
density in order to ensure the most efficient and cost-effective use
of land and public services.
Bozeman Community Plan Page 3-1
“Then I say the earth
belongs to each generation
during its own course, fully
and in its own right, but no
generation can contract
debts greater than can be
paid during the course of its
own existence."
Thomas Jefferson
The City’s planning for land
uses is focused on these
principles:
• Neighborhoods.
• Sense of Place
• Natural Amenities.
• Centers
• Integration of Action.
• Urban Density.
• Sustainability.
140
Major Themes and Related Chapters Chapter 3: Land Use
The land use patterns, policies, and concepts discussed in this
chapter apply to the Planning Area shown on Figure 2-1. This area
covers 42,463 acres, of which 12,477 are located within the
municipal boundaries of Bozeman. Areas outside of the legal City
limits, which change from time to time with annexations, are
shown to inform private and public parties of the desired patterns
for development as the City grows. Land use designations shown
are advisory in nature and are not binding until lands are within
municipal boundaries. In areas of County jurisdiction, the County
Commission retains final authority for approval or denial of
projects. The process of looking outside the City and to the future
will facilitate City-County cooperation in land use planning and
related issues and provides a greater level of predictability to
landowners and interested parties.
3.2 Major Themes and Related Chapters
The following matrix lists the major planning concepts that this
chapter addresses and directs readers to other sections of the plan
where similar planning concepts are discussed.
Chapter Title PlanningConceptNeighborhoods Sense of Place NaturalAmenitiesCentersIntegration ofActionUrban DensitySustainability Growth & Change X X
Land Use X X X X X X X
Community Quality X X X X X X X
Historic Preservation X X X X
Arts & Culture X X
Housing X X X X X
Economic Development X X X X X X
Environmental Quality X X X X
Parks & Recreation X X
Transportation X X X X X
Pub. Services & Facilities X X X X
Disaster and Emergency X X
Regional Coordination X X X X
The City used different events and types
of outreach to gather public input for the
update of the growth policy.
Page 3-2 Bozeman Community Plan
141
Chapter 3: Land use Intent and Background
Land Use Principles
There are seven core ideas which form a foundation for many of
the land use policies of the Bozeman Community Plan:
Neighborhoods. There is strong public support for the
preservation of existing neighborhoods and new development
being part of a larger whole, rather than just anonymous
subdivisions. This idea includes the strengthening and support of
existing neighborhoods through adequate infrastructure
maintenance and other actions. As the population of Bozeman
grows, it is harder to keep the same “small town” feel because
residents cannot be on familiar terms with everyone. The
neighborhood unit helps provide the sense of familiarity and
intimacy which can be lacking in larger communities. The
neighborhood commercial/activity center and local parks provide
opportunities to casually interact with other nearby residents. Not
all neighborhoods are of equal size or character.
Sense of Place. The second idea builds on those of Centers and
Neighborhoods. Part of the appeal of Bozeman is its distinct
character. A portion of this character comes from the natural
setting of the town. Bozeman’s character includes the sense of
place created by constructed landmarks such as Downtown and
MSU. Preserving Bozeman as a unique place rather than
Anywhere, USA is important. This concept was strongly supported
throughout the public outreach process. The existing Downtown
business core was the overwhelming choice for the location which
best represented the “heart” of Bozeman.
The preservation and strengthening of the unique features and
built environment which give a sense of place is important for
Bozeman’s individual identity to continue in the future.
Incorporating community and architectural design features which
provide organization and landmarks, such as parks and commercial
centers, in new development will help to anchor and extend this
sense of place as Bozeman grows. The sense of place will be
strengthened through development which fills in existing gaps in
the City and helps to reinforce the compact pattern of historic
Bozeman.
Natural Amenities. Bozeman is located in a beautiful natural
environment. The natural amenities surrounding Bozeman are a
significant component of the high quality of life and support the
economy. As Bozeman changes and grows, opportunities to
carefully integrate development with natural features such as
streams arise. Ensuring that development is responsive to the
natural amenities will help to keep Bozeman beautiful and vibrant.
Bozeman Community Plan Page 3-3
The built and natural environments
shape our sense of place. Neighborhoods
are often the places with which we are
most familiar. Bozeman provides many
memorable images and places.
142
Major Themes and Related Chapters Chapter 3: Land Use
Centers. Strengthen a pattern of community development
oriented on centers. A corollary principle is for compact
development. Commercial activities in mutually reinforcing
centralized areas provide:
· Increased business synergy.
· Greater convenience for people with shorter travel distances to a
wide range of businesses
The opportunity to accomplish several tasks with a single trip.
· Facilitates the use of transportation alternatives to single
occupant motor vehicles, with a corresponding reduction in
traffic and road congestion and air quality impacts.
· Enables greater access to employment, services, and recreation
with a reduced dependence on the automobile
· Greater efficiencies in delivery of public services,
· Corresponding cost savings in both personal and commercial
applications.
The center-based concept is expected to require less land for actual
business activities due to efficiency such as shared parking. It also
changes the shape of the commercial areas. The center-based
development pattern is supported in this plan by locating centers
at the intersection of arterial and collector streets. Such locations
allow not only immediately adjacent residents but also passing
travelers to support the commercial activities. Centers are further
supported through careful location of higher density housing in a
manner that provides support for commercial operations while
providing amenities to residents.
Integration of Action. Land use policy should be integrated with
and supported by all other City policies and programs, including
facility planning and construction for services such as wastewater
and transportation. This ensures that the community objectives
identified through this plan are attained efficiently. The application
is that capital improvements, maintenance programs, and plan
implementation tools are regularly evaluated for their compliance
with the goals and objectives of this plan. This level of integration
is intended to prevent contradictory actions. By ensuring a
consistent set of guiding principles, the City will be able to provide
a higher level of service to its citizens, minimize contradictory or
conflicting policies which waste financial and other resources, and
enable a more equitable evaluation of public stewardships.
Urban Density. Although a wide range of commercial and
housing styles, types, and densities are provided in Bozeman, not
every option is provided. Bozeman is a city, and the housing
densities are not those of the rural areas of Gallatin County.
Newly constructed commercial center at
Kagy and S. 3rd Avenue
Watercourse setbacks and stormwater
management protects water quality which
in turn preserves our sense of place and
helps constrain financial expense to public
services.
Page 3-4 Bozeman Community Plan
143
Chapter 3: Land use Intent and Background
Fundamental to the efficient and cost-effective provision of urban
services, multi-modal transportation oriented development, and a
compact development pattern is a concentration of persons and
activities. Density of development must also be balanced against
community character, parks and open spaces, and the housing
choices of citizens. Quality site and architectural design will
materially affect the success and acceptability of urban density and
scale of development.
Sustainability. Providing for the needs of today’s residents and
visitors should be done in a manner that does not jeopardize the
quality of life, including the natural environment, of future
residents. Careful community design and thoughtful development
can serve the community well both now and in the future.
Sustainability is a holistic issue and should be interwoven through
the City’s operations and regulations.
Drawing on the seven basic ideas discussed above, the following
principles were used to prepare the land use designations, policies,
and map:
• Development should be based on neighborhoods, including
commercial neighborhoods.
• Neighborhoods should have easily identified centers and
edges.
• Neighborhoods should be reasonably compact and serve a
variety of housing needs.
• Transportation systems should support the desired land use
pattern and be interconnected multi-modal networks (e.g.
bicycles, pedestrian, transit, automobiles or other vehicles)
rather than focusing solely on automobiles.
• A diverse mix of activities should occur within proximity to
each other, but not necessarily have everything happening
everywhere.
• Urban design should integrate multi-modal transportation,
open spaces, land use activity, and quality of life.
• Open spaces, including parks, trails, and other gathering places,
should be in convenient locations.
• Development should be integrated into neighborhoods and the
larger community rather than as a series of unconnected stand
alone projects.
• A variety of housing and employment opportunities is
important.
• Land development should be compatible with and further
other community goals.
• Land use designations must respond to a broad range of
factors, including natural constraints, economic constraints,
and other community priorities.
Bozeman Community Plan Page 3-5
Constructing future development in a
sustainable manner will help protect the
natural amenities which draw people to
Bozeman.
144
Major Themes and Related Chapters Chapter 3: Land Use
• The needs of new and existing development must coexist and
remain in balance.
• Infill development and redevelopment which encourages the
efficient utilization of land and existing infrastructure systems
is preferred.
• Future development patterns should not be detrimental to the
existing community, with special attention to be given to the
support of the existing Historic Core and Downtown of the
community.
3.3 Land Use Goals and Objectives
Goal LU-1: Create a sense of place that varies
throughout the City, efficiently provides
public and private basic services and facilities
in close proximity to where people live and
work, and minimizes sprawl.
Rationale: A sense of community is strengthened by
distinctive areas which facilitate neighborhood identity.
This is strengthened when essential services are
available and encourage informal interactions. Full
featured neighborhoods allow extensive interaction and
build identity with a specific part of the community. A
sense of place does not prohibit change or continued
evolution of the community.
Objective LU-1.1: The land use map and attendant
policies shall be the official guide for the development of
the City and shall be implemented through zoning
regulations, capital improvements, subdivision regulations,
coordination with other governmental entities, and other
implementation strategies.
Objective LU-1.2: Review and revise regulatory standards
and City policies to ensure that develop advances the
vision, goals, and objectives of this plan, and sprawl, as
defined in Appendix K, is discouraged.
Objective LU-1.3: Encourage positive citizen
involvement in their neighborhood and community.
Objective LU-1.4: Provide for and support infill
development and redevelopment which provides additional
density of use while respecting the context of the existing
development which surrounds it. Respect for context does
not automatically prohibit difference in scale or design.
Implementation Policies: 1, 3, 5, 6, 7, 10, 12, 25, 28,
64,
Our sense of place comes from both the
natural and built environment.
The only way to find
creative, forward-looking
solutions is by involving the
community, reaching across
traditional divides and
setting aside partisan
politics.
Bill Ritter Jr.
Page 3-6 Bozeman Community Plan
145
Chapter 3: Land use Intent and Background
Goal LU-2: Designate centers for commercial
development rather than corridors to encourage
cohesive neighborhood development in
conjunction with non-motorized transportation
options.
Rationale: Transportation and land use are closely
connected. A center based development pattern is more
land and resource efficient and supports the goals of
community and neighborhood development and
sustainability. Future growth will cause additional demand
for and use of transportation facilities. A center based
development pattern can reduce future demand.
Objective LU-2.1: Locate high density community scale
service centers on a one mile radius, and neighborhood service
centers on a one-half mile radius, to facilitate the efficient use
of transportation and public services in providing employment,
residential, and other essential uses.
Objective LU-2.2: Provide for a limited number of carefully
sited regional service centers which are appropriately sized and
serviced by adequate infrastructure.
Objective LU-2.3: Encourage redevelopment and
intensification, especially with mixed uses, of brownfields and
underutilized property within the City consistent with the
City’s adopted standards. Using this approach rehabilitate
corridor based commercial uses into a pattern more supportive
of the principles supported by commercial centers.
Implementation Policies: 6, 10, 11, 19, 50, 70, 81, 83
Goal LU-3: Strengthen the Historic Core of
Bozeman to preserve the community character,
economic resource, and historical connection
represented by this area.
Rationale: The Historic Core, as defined in the glossary, is
one of Bozeman’s most distinctive and valued features. Loss of
or injury to this area would lessen the community’s cultural,
economic, and social assets and reduce the sense of place
Bozeman holds within the community, state, and nation.
Commercial center examples
Civic uses such as parks and churches
provide landmarks which help build a
sense of place.
Bozeman Community Plan Page 3-7
146
Major Themes and Related Chapters Chapter 3: Land Use
Objective LU-3.1: Ensure that development and redevelopment
of this area, including the adaptive reuse of historic buildings, is
done in a manner which enhances, and is compatible with, the
current community fabric.
Objective LU-3.2: Encourage the use and redevelopment of
underutilized and brownfield sites to provide employment and
housing which will help to maintain the vibrancy and vitality of the
Historic Core area.
Objective LU-3.3: Encourage a traditional mix of diverse
commercial and residential uses within the downtown to instill an
active atmosphere and twenty-four hour presence.
Objective LU-3.4: Give particular emphasis to encourage living
opportunities within walking distance of the downtown
employment, retail, and neighborhood services.
Objective LU-3.5: Support maintaining local, state and federal
government, the County Courthouse, City Hall, and other existing
social service providers in downtown locations and encourage
expansions of facilities to also remain downtown.
Implementation Policies: 3, 5, 7-12, 16, 19, 20-22, 44, 49, 56,
70, 81,
Goal LU-4: Sustainability, Natural Environment and
Aesthetics – Ensure adequate review of individual
and cumulative environmental and aesthetic effects
of development to preserve the viewsheds, natural
functions, and beauty which are a fundamental
element of Bozeman’s character. Design and
development in a quantifiably sustainable manner
are desirable.
Rationale: The natural environment is a key aspect of
Bozeman’s appeal. Accidental or deliberate injury to the
natural environment can be very costly to repair and can have
substantial impacts on City functions. Individual actions can
cause incremental change which is unacceptable. Human use
of resources will cause impacts. Development within the City
can provide significant protection for valued natural resources
within the larger community of Gallatin County.
Objective LU-4.1: Protect important wildlife habitats, and natural
areas which provide for beneficial functions, such as floodplains.
Strengthening the Historic Core includes
many types of investment including
appropriate additions (top), new buildings
(middle), and renovation and
rehabilitation of existing structures
(bottom).
Page 3-8 Bozeman Community Plan
147
Chapter 3: Land use Intent and Background
Sustainability is the intersection of the
built and natural environments.
Sustainability is a major goal of the City
of Bozeman but individual actions are
also critical to success.
Objective LU-4.2: Protect the viewshed, including ridgelines,
surrounding and within Bozeman to preserve the natural character
and mountain setting which helps to make Bozeman unique.
Objective LU-4.3: Encourage the creation of well-defined
residential neighborhoods. Each neighborhood should have a clear
focal point, such as a park, school, other open space or community
facility, and shall be designed to promote pedestrian convenience.
To this end, the City shall encourage the use of historic Bozeman
neighborhoods, including a significantly interconnected street
system, as models for the planning and design of new residential
neighborhoods.
Objective LU-4.4: Review and revise the City’s regulations to
encourage and support sustainability in new construction and
rehabilitation or redevelopment of existing areas.
Objective LU-4.5: Generation of renewable energy including
solar and wind power as an accessory use is encouraged with
proper design and compatibility to adjacent uses.
Objective LU-4.6: All mixed use areas should be developed on a
grid of connectivity, including streets, alleys, driveways, and
parking areas that contain multimodal facilities and a high level of
connectivity to adjacent development. Shared use, underground, or
other structured parking is recommended to reduce surface
parking area.
Objective LU-4.7: Stormwater systems should be designed using
Low Impact Development principles.
Objective LU-4.8: Promote the efficient use of water, energy,
land, human resources, and natural resources and protect water
supply quantity and quality.
Objective LU-4.9: Recognize the cumulative effects of changes in
land use and develop equitable means to evaluate, avoid, and/or
respond to negative cumulative impacts. Recognize the value of
well designed and implemented urban development in minimizing
impacts from existing and future development.
Objective LU-4.10: Encourage development throughout Gallatin
County to occur within existing municipalities and support the
local ability to address and manage change and growth.
Implementation Policies: 2-4, 9, 10, 12, 13, 15, 18, 25-31, 49,
53, 57-68, 70-72, 74, 75, 80, 90, 91
Bozeman Community Plan Page 3-9
148
Major Themes and Related Chapters Chapter 3: Land Use
3.4 Land Use Category Descriptions
Residential. This category designates places where the primary
activity is urban density dwellings. Other uses which complement
residences are also acceptable such as parks, low intensity home
based occupations, fire stations, churches, and schools. High
density residential areas should be established in close proximity to
commercial centers to facilitate the provision of services and
employment opportunities to persons without requiring the use of
an automobile. Implementation of this category by residential
zoning should provide for and coordinate intensive residential uses
in proximity to commercial centers. The residential designation
indicates that it is expected that development will occur within
municipal boundaries, which may require annexation prior to
development.
The dwelling unit density expected within this classification varies
between 6 and 32 dwellings per net acre. A higher density may be
considered in some locations and circumstances. A variety of
housing types can be blended to achieve the desired density. Large
areas of single type housing are discouraged. In limited instances
the strong presence of constraints and natural features such as
floodplains may cause an area to be designated for development at
a lower density than normally expected within this category. All
residential housing should be arranged with consideration of
compatibility with adjacent development, natural constraints such
as watercourses or steep slopes, and in a fashion which advances
the overall goals of the Bozeman growth policy. The residential
designation is intended to provide the primary locations for
additional housing within the planning area.
Residential Emphasis Mixed Use. The Residential Mixed-Use
category promotes neighborhoods with supporting services that
are substantially dominated by housing. A diversity of residential
housing types should be built on the majority of any area within
this category. Housing choice for a variety of households is desired
and can include attached and small detached single-household
dwellings, apartments, and live-work units. Residences should be
included on the upper floors of buildings with ground floor
commercial uses. Variation in building massing, height, and other
design characteristics should contribute to a complete and
interesting streetscape and may be larger than in the Residential
category.
Secondary supporting uses, such as retail, offices, and civic uses,
are permitted at the ground floor. All uses should complement
existing and planned residential uses. Non-residential uses are
expected to be pedestrian oriented and emphasize the human scale
with modulation as needed in larger structures. Stand alone, large,
Quality, safe, and affordable housing can
occur in many ways. Housing can also be
mixed with commercial uses with
appropriate design and careful planning.
Three examples of buildings in a mixed
residential/commercial area are above.
Residential Emphasis
Mixed Use Purposes
· Compact Walkable
neighborhoods
· Vertical and horizontal
mixed uses
· Creation and support of
vibrant community centers
· Enhanced sense of place
· Promotion of sustainable Communities
· Diversity of housing options
Page 3-10 Bozeman Community Plan
149
Chapter 3: Land use Intent and Background
non-residential uses are discouraged. Non-residential spaces
should provide an interesting pedestrian experience with quality
urban design for buildings, sites, and open spaces.
This category is implemented at different scales. The details of
implementing standards will vary with the scale. The category is
appropriate near commercial centers and larger areas should have
access on collector and arterial streets. Multi-household higher
density urban development is expected. Any development within
this category should have a well integrated transportation and open
space network which encourages pedestrian activity and provides
ready access within and to adjacent development.
Suburban Residential. This category indicates locations generally
outside of City limits, but within the planning area, where a land
development pattern has already been set by rural subdivisions.
Subdivisions in this area are generally characterized by lots two
acres in size or less. It is probable that portions of this area may
be proposed for annexation within the next twenty years. The area
is able to be served with municipal water and sewer services with
appropriate extensions of main lines. Any further development
within this area should be clustered to preserve functional open
space. Individual septic and well services are discouraged. If
development is proposed within reasonable access distances to
waste water and water services, annexation to the City should be
completed prior to development.
Regional Commercial and Services. Bozeman is a retail,
education, health services, public administration, and tourism hub
and provides opportunities for these activities for a multi-county
region. Often the scale of these services is larger than would be
required for Bozeman alone. Because of the draw from outside
Bozeman, it is necessary that these types of facilities be located in
proximity to significant transportation routes. Since these are large
and prominent facilities within the community and region, it is
appropriate that design guidelines be established to ensure
compatibility with the remainder of the community. Opportunity
for a mix of uses which encourages a robust and broad activity
level is to be provided. Residential space should not be a primary
use and should only be included as an accessory use above the first
floor. Any development within this category should have a well
integrated transportation and open space network which
encourages pedestrian activity, and provides ready access within
and to adjacent development.
Community Core. The traditional core of Bozeman is the historic
downtown. This area has an extensive mutually supportive
diversity of uses, a strong pedestrian and multi-modal
transportation network, and a rich architectural character. Essential
Figure 3-1, Future Land Use Map
section
The future land use map depicts each
category of land use in different colors.
The map is in the pocket at the back of
the Bozeman Community Plan.
Bozeman Community Plan Page 3-11
150
Major Themes and Related Chapters Chapter 3: Land Use
government services, places of public assembly, and open spaces
provide the civic and social core of town. Residential development
on upper floors is well established. New residential uses should be
high density. The area along Main Street should be preserved as a
place for high pedestrian activity uses, with strong pedestrian
connectivity to other uses on nearby streets. Users are drawn from
the entire planning area and beyond. The intensity of development
is high with a Floor Area Ratio well over 1. Future development
should continue to be intense while providing areas of transition to
adjacent areas and preserving the historic character of Main Street.
Community Commercial Mixed Use. Activities within this land
use category are the basic employment and services necessary for a
vibrant community. Establishments located within these
categories draw from the community as a whole for their employee
and customer base and are sized accordingly. A broad range of
functions including retail, education, professional and personal
services, offices, residences, and general service activities typify this
designation.
In the “center-based” land use pattern, Community Commercial
Mixed Use areas are integrated with significant transportation
corridors, including transit and non-automotive routes, to facilitate
efficient travel opportunities. The density of development is
expected to be higher than currently seen in most commercial
areas in Bozeman and should include multi-story buildings. A
Floor Area Ratio in excess of .5 is desired. It is desirable to allow
residences on upper floors, in appropriate circumstances. Urban
streetscapes, plazas, outdoor seating, public art, and hardscaped
open space and park amenities are anticipated, appropriately
designed for an urban character. Placed in proximity to significant
streets and intersections, an equal emphasis on vehicle, pedestrian,
bicycle, and transit circulation shall be provided. High density
residential areas are expected in close proximity. Including
residential units on sites within this category, typically on upper
floors, will facilitate the provision of services and opportunities to
persons without requiring the use of an automobile.
The Community Commercial Mixed Use category is distributed at
two different scales to serve different purposes. Large Community
Commercial Mixed Use areas are significant in size and are activity
centers for an area of several square miles surrounding them.
These are intended to service the larger community as well as
adjacent neighborhoods and are typically distributed on a one mile
radius. Smaller Community Commercial areas are usually in the 10
15 acre size range and are intended to provide primarily local
service to an area of approximately one-half mile radius. These
commercial centers support and help give identity to individual
neighborhoods by providing a visible and distinctive focal point.
The historic Bozeman Hotel now hosts
many different businesses in the
Downtown heart of Bozeman.
Floor area ratio (FAR) is a
measure of the area of
building to area of land. A
10,000 square foot
building on a 40,000
square foot lot has a FAR of 0.25. A higher FAR represents more intensive development.
Non-residential site plans
submitted to Bozeman had
a median FAR in
2004 of 0.225,
2007 of 0.413
Page 3-12 Bozeman Community Plan
151
Chapter 3: Land use Intent and Background
They should typically be located on one or two quadrants of
intersections of arterials and/or collectors. Although a broad range
of uses may be appropriate in both types of locations the size and
scale is to be smaller within the local service placements.
Mixed use areas should be developed in an integrated, pedestrian
friendly manner and should not be overly dominated by any single
land use. Higher intensity employment and residential uses are
encouraged in the core of the area or adjacent to significant streets
and intersections. As needed, building height transitions should be
provided to be compatible with adjacent development.
Public Institutions. A variety of activities are undertaken in this
land use classification. Schools are a dominant use including
Montana State University. Other typical uses are libraries, fire
stations, and publicly operated utilities. A significant portion of
Bozeman’s employment occurs within this category.
Parks, Open Space, and Recreational Lands. All publicly
owned recreational lands, including parks, are included within this
category, as well as certain private lands. These areas are generally
open in character and may or may not be developed for active
recreational purposes. This category includes conservation
easements which may not be open for public use.
Golf Courses. This category designates properties operated by
public or private parties in order to support the playing of golf.
Golf courses may also include restaurants, retail sales, and other
accessory activities.
Business Park Mixed Use. This classification provides for
employment areas with a variety of land uses typified by office uses
and technology-oriented light industrial uses. Civic uses may also
be included. Retail, residential, services, or industrial uses may also
be included in an accessory or local service role. Accessory uses
should occupy 20% or less of the planned Business Park Mixed
Use areas. These areas are often a buffer between uses, and the
scale and intensity should be carefully considered to ensure
compatibility with adjacent developments. The developments
should provide integrated open spaces, plazas, and pedestrian
pathways to facilitate circulation and a pleasant environment. Uses
may be mixed both vertically and horizontally with vertically mixed
uses being encouraged. Higher intensity uses are encouraged in the
core of the area or adjacent to significant streets and intersections.
As needed, building height or other transitions should be provided
to be compatible with adjacent development.
Top to bottom; mixed use infill on E.
Main Street, shared parking,
pedestrian/bicycle paths integrated with
commercial development, outdoor spaces
and site integration, conceptual public
gathering space
Bozeman Community Plan Page 3-13
152
Major Themes and Related Chapters Chapter 3: Land Use
Industrial. This classification provides areas for the uses which
support an urban environment such as manufacturing,
warehousing, and transportation hubs. Development within these
areas is intensive and is connected to significant transportation
corridors. In order to protect the economic base and necessary
services represented by industrial uses, uses which would be
detrimentally impacted by industrial activities are discouraged.
Although use in these areas is intensive, these areas are part of the
larger community and shall meet basic standards for landscaping
and other site design issues and be integrated with the larger
community. In some circumstances, uses other than those typically
considered industrial have been historically present in areas which
were given an industrial designation in this growth policy. Careful
consideration must be given to public policies to allow these mixed
uses to coexist in harmony.
Present Rural. This category designates areas where development
is considered to be generally inappropriate over the 20 year term of
the Bozeman Community Plan, either because of natural features,
negative impacts on the desired development pattern, or significant
difficulty in providing urban services. The Residential and
Residential Mixed Use categories contain adequate area to
accommodate residential development over the 20 year horizon of
the Bozeman Community Plan. Development within the Present
Rural area would be generally disruptive to the desired compact
urban land use pattern depicted in the Plan. As Bozeman develops
over time, it is expected that the City will expand outward into
areas previously designated as Present Rural. As the City’s growth
policy is updated from time to time, some areas currently classified
as Present Rural are expected to be reclassified to urban
designations. Reclassification shall occur prior to development.
The land shown with a Present Rural designation is comprised of
parcels in a variety of different sizes, but typically in larger
acreages. Suburban or rural density subdivisions adjacent to the
City may impede an orderly and cost effective expansion of the
City.
In order to prevent such conflicts and problems in the future, use
of land in the Present Rural land use designation should follow
one of three paths, which are listed in order of the City’s
preference:
1. Remain as currently utilized, until annexed and municipal
services are available to support a Residential or other
urban land use category development as described in this
plan. The change in designation will require an amendment
to the growth policy; (See Chapter 17)
Industrial buildings take many forms.
Low density rural development can
interfere with efficient extension of urban
services and development.
Page 3-14 Bozeman Community Plan
153
Chapter 3: Land use Intent and Background
2. Develop at a density of a single dwelling per existing
parcel, with consolidation of smaller parcels into single
ownership prior to development; or
3. If further subdivision is proposed, to develop at urban
densities and standards with provisions for connection to
City services when they become available.
Annexation of most Present Rural areas is unlikely over the term
of the Bozeman Community Plan and final authority to deny or
approve development in county areas shown with this designation
remains with the County Commission. The City has adopted
facility plans which address the provision of services within all the
planning area. These will enable coordination with Gallatin
County. In the event that an intergovernmental agreement is
developed that addresses these areas, development shall meet such
terms as the agreement states.
3.5 Future Land Use Map
Figure 3-1 (pocket in back) is the future land use map for the
Bozeman Community Plan. It is a synthesis of many different
ideas, public input, existing conditions, and existing and desired
land use patterns for the future. The map is the visual
representation of the land use patterns and ideas discussed in this
chapter, and elsewhere throughout this document. The map shows
in a very broad manner acceptable uses and locations throughout
the community. It does not represent a commitment by the City
to approve every development proposed within each category.
Neither does a designation indicate that a property is free from
constraints to development
The map and other elements of this plan must be weighed and
evaluated in conjunction with the specific details of a proposed
project which are beyond the scope of this plan but will be
addressed through the implementation tools discussed in Chapter
16 and Appendix I. The provisions of any intergovernmental
agreement between the City and County regarding land use will
influence the final development pattern with the defined planning
area.
The boundaries shown on the map are of necessity at a large scale.
As a result some interpretation may be required in the future. It is
the intent of the map to follow natural and visible boundaries such
as streams or right-of-ways where possible. Within developed
areas, boundaries generally follow parcel boundaries established by
recorded plats or certificates of survey. Where such natural or legal
boundaries do not exist, some minor flexibility in the
interpretation of the boundary is allowed to the Director of the
Department of Planning and Community Development so long
A compact development pattern
minimizes intrusion into agriculturally
productive areas
The health and well-being
of Bozeman’s residents are impacted by how the community is planned and built. Development patterns affect dependency on motor vehicles.
Communities that provide
options for living close to
work and services, as well
as the choice to walk or
bike as part of normal daily
life can facilitate mental
and physical health.
Health issues associated
with development patterns include:
· Air pollution
· Obesity
· Cardiovascular disease
· Diabetes
· Stress
· Blood pressure
The City of Bozeman is
committed to creating a
safe, well designed
community that promotes
the health of its residents.
Bozeman Community Plan Page 3-15
154
Major Themes and Related Chapters Chapter 3: Land Use
as the exercise of that flexibility is not contrary to the intent,
purposes, or goals of this plan and does not materially alter the
desired land pattern in an area. If significant alterations or
modifications are desired, an amendment to this plan must be
undertaken.
This plan looks at a twenty-year horizon as well as the current
situation, so it is to be expected that some areas which are not in
conformance with the plan will be identified. This plan recognizes
the presence of these uses without specifically mapping or
otherwise identifying them. It is desired that these anomalies be
resolved over the term of this plan so that the land use pattern
identified herein may be completed.
3.6 Future Land Use Needs
Appendix C provides a description of the expected additional acres
of land required to satisfy anticipated demand for urban uses by
2025. A detailed discussion of inventory and future land use
projections is in Appendix C. A total of 18,058 urban use acres are
depicted on the future land use map.
3.7 Implementation and Administration
The creation of the land use pattern shown in Figure 3 will only
result from concerted efforts by many people. The construction
of buildings and conducting of commercial and residential
activities is done by the private sector. Their willingness to invest
money and personal commitment into the community has a huge
influence on the community’s ability to realize its goals. The
public sector, especially the City of Bozeman, also has a significant
role to play. Bozeman’s role is the development of its growth
policy and corresponding implementation tools such as zoning and
subdivision standards, and facility planning and maintenance. By
crafting its actions to further the goals of this plan, and then
consistently carrying out those actions, the City can influence
private parties and form effective partnerships to further the
achievement of the identified community goals.
Following the adoption of the Bozeman Community Plan, the
zoning and subdivision ordinances must be reviewed and revised
as needed. These are required by law to be in compliance with the
growth policy. There are many specific issues which those two
implementation tools address. Street design, open space
requirements, and density of development and others have the
potential to substantially advance or impede the ideals and goals of
the Bozeman Community Plan. These ordinances are
implementation tools for the plan. It is important that community
involvement continue and inform the revisions to zoning and
All persons are born free
and have certain inalienable
rights. They include the
right to a clean and
healthful environment and
the rights of pursuing life's
basic necessities, enjoying
and defending their lives
and liberties, acquiring,
possessing and protecting
property, and seeking their
safety, health and
happiness in all lawful
ways. In enjoying these
rights, all persons recognize
corresponding
responsibilities.
MT Constitution, Article II
Section 3. Inalienable
rights.
Page 3-16 Bozeman Community Plan
155
Chapter 3: Land use Intent and Background
There is no such thing as
justice in the abstract; it is
merely a compact between
men.
Epicurus, 341 BC
subdivision standards. These implementation tools are those most
commonly encountered by the public. It is important that the
revisions happen soon and without unnecessary delay.
Continued development of the community brings change. These
changes will bring mutual costs and benefits, as well as some
detriments and benefits from the actions of others which are felt
more individually. In preparing and executing implementation it is
important to preserve fairness and reasonableness. Regulations
may be expected to seek mitigation of substantial actual impacts,
not minor or only perceived impact on preferences which are not
supported by evidence. The established review criteria are an effort
to provide balance and consideration for all the affected parties in
the evaluation of development impacts. The use of public facilities
in conformance with the standards and programs adopted by the
City is not an unreasonable or burdensome impact of
development. The City’s standards, while respectful of the
community values and diversity of interests, will not yield
outcomes which satisfy every person in each situation.
Specific implementation tasks are described in Chapter 16.
Bozeman Community Plan Page 3-17
156